Title
Recommendation to Authorize the City Manager to Negotiate with Axon Enterprise, Inc.("Axon") to Execute a Purchase Agreement for the Acquisition, Support, and Maintenance of 23 In-Car Dash Cameras with Fully Integrated Automated License Plate Recognition Systems for a Not-to-Exceed Amount of $331,183.35 for Five Years. (Police 10031100)
Body
To: Honorable Mayor and Members of the City Council
From: Jennifer Ott, City Manager
EXECUTIVE SUMMARY
In February of 2022, the Alameda Police Department (APD) presented a proposal to City Council to authorize fixed and mobile (in-car) Automatic License Plate Reader (ALPR) systems in the City of Alameda. City Council authorized APD to install a fixed ALPR system throughout the City and directed staff to explore the installation of mobile ALPR at a later date once data was available on the performance of the fixed system. Recently, a referral was made by City Council to bring back this staff report in May on the potential funding and implementation of a mobile ALPR system.
APD endeavors to provide exceptional and responsive service to the community with the highest degree of accountability. APD seeks Council approval of a purchase agreement with Axon to install 23 in-car cameras in the patrol vehicle fleet which will increase transparency and accountability while enhancing officers’ abilities to address specific vehicles involved in crime. These cameras will serve various functions, including full integration with the current body-worn camera video/audio recording devices and the City’s newly installed fixed ALPR system with direct digital upload ability into the City’s digital evidence storage system. In addition to creating a video record of officer performance, this system’s ALPR feature will further support APD’s initiative on an intelligence-led approach.
BACKGROUND
In 2014, APD received City Council approval for Vigilant Solutions mobile ALPR use on a limited basis in four vehicles. The following year, APD began using Axon body-worn cameras. In 2017, City Council approved using Axon as the vendor for CED devices, commonly referred to as Tasers. In 2022, City Council approved a combined body-worn camera / CED contract with Axon, and shortly after, APD entered into a contract with Flock Safety (Flock) for fixed ALPR, which is compatible with the proposed Axon ALPR system.
At the time of the approval by City Council to install a fixed ALPR system throughout the City, staff also recommended a mobile system. With the intent of learning more about this technology and its efficacy, City Council only approved the fixed ALPR system and directed further review on a mobile system. Subsequently, a City Council referral was made to bring forth this staff report on augmenting the existing fixed ALPR system with a mobile ALPR system.
APD uses Vigilant Solutions as its current mobile ALPR vendor, with only one of the four original cameras still in service. When the contract was signed, Vigilant Solutions was APD's preferred vendor. However, other vendors, such as Axon, have since entered the market with an improved emphasis on prioritizing privacy. As a result, APD is recommending purchasing in-car ALPRs from Axon due to improved privacy protections and because they fully integrate with the City’s existing IT systems improving security and ease of use.
In addition to the full integration with APD's current systems, this technology provides the following:
• High-definition dual-view camera with a panoramic field of view;
• The ability to automatically record activity prior to the initiation of a vehicle enforcement action to increase accountability and to document evidence;
• High-definition interior camera with infrared illumination for back seat view in complete darkness;
• Wireless microphone and Charging Base for capturing audio when outside of the vehicle;
• Ability to efficiently categorize, playback, and share all video and audio alongside other digital files through Evidence.com;
• Automatic time synchronization with all Axon Fleet and other Axon body-worn cameras allows for multi-camera playback on Evidence.com;
• Wireless alerts from the Axon Conducted Energy Device (CED also referred to as “taser”); and
• Optional Axon Aware live stream, alerts, and location updates for situational awareness.
The following provides a detailed discussion of the benefits and privacy protections associated with APD’s proposal to purchase and implement 23 in-car cameras with ALPR.
DISCUSSION
Technological Integration
Since 2020, Axon and Flock have partnered to enhance the services of law enforcement agencies by providing a more cost-effective option to deploy a fully integrated, ethically-designed network of fixed and mobile cameras (with mobile ALPR features) that use proprietary software to also upload evidence directly into the City’s digital evidence storage. With this offering, APD can further maximize its transparency and operational efficacy through the combination of in-car cameras, fixed ALPRs, body-worn cameras, and digital evidence seamlessly and directly uploaded into one secure system, maintained and administered by the City.
This system will help APD produce comprehensive videos that comply with laws regarding the public's access to relevant recordings. By adding this specific technology, APD will increase its ability to produce additional views and recordings of an incident captured by the in-car camera technology. Existing law mandates particular videos be subject to public release. Currently, APD uses Axon software to redact videos as required by law and appropriate for public viewing.
Since APD and the Alameda County District Attorney's Office use Axon's technology, it allows the seamless and secure sharing of digital evidence with their office. Moreover, recordings from these devices have proven to be beneficial in providing evidence in criminal prosecutions.
In all aspects, Axon has exceeded APD's expectations in security and reliability with the City’s digitally recorded evidence. Axon's product and customer service have been excellent, and City staff recommends authorizing a contract and purchase of Axon’s ALPRs.
Crime Reduction
In-car cameras with ALPR technology enhance officers' abilities to detect criminal activity, gather digital evidence, and help to alert them of crimes. Using systems to alert officers of missing person vehicles, Amber alert vehicles, or stolen cars allows the officer to confirm the data and take law enforcement action based on that data. Acting on these alerts enhances APD's objectives to protect our community from harm.
Since using the Fixed ALPR system, officers have been notified of stolen vehicles entering the City. Investigators have been able to develop leads and gather evidence to strengthen probable cause cases against suspects. APD's ability to take data-informed action on those committing crimes has increased while simultaneously reducing less informed police contacts has occurred.
Transparency and Accountability
This system isn’t only designed to provide an ALPR function. An equally important aspect of this technology is the ability to assess performance. Body-worn cameras and in-car cameras are widely utilized by law enforcement and are effective tools for providing an objective record of interactions between law enforcement and the community. The recordings provide evidence in criminal cases and also increase accountability and transparency, which are crucial to solidifying public trust. Having an independent and reviewable record of an incident is in line with 21st Century Policing and best practices.
This resource will allow APD to:
• Produce information relevant and actionable to public safety initiatives;
• Support APD’s data driven and intelligence led approach on crime;
• Engage in intelligence-led efforts by focusing on specific wanted vehicles;
• Create a recording of an officer’s perspective prior to a vehicle enforcement stop;
• Create a recording to support accountability and training initiatives; and
• Further demonstrate a commitment to transparency to the community.
Use of Technology
Currently, the APD does not have in-car camera systems. The proposal will outfit 23 police vehicles with an in-car camera system comprised of a front-facing camera and rear-facing camera into the transport area of each vehicle. The ALPR is forward facing and designed to capture rear license plates, similar to the four ALPRs previously authorized in patrol vehicles. The ALPRs can read vehicle license plates and determine if they are on a hot list, including stolen vehicles and AMBER alert vehicles. For example, within a recent 30-day period, APD used information from the current fixed ALPR system on 36 investigations. Additionally, the rear-facing camera views the patrol car back seat and is utilized for risk management and accountability. The system integrates with various vehicle components to trigger recordings automatically. This feature can include:
• When emergency lights and sirens are activated; and
• When the rear door(s) to the prisoner transport area is opened.
Although officers are required by policy to manually activate their body-worn cameras whenever they are interacting with the public, this feature is highly desirable because it accounts for instances when an officer encounters a highly stressful or high-risk incident. This feature will not absolve the officer’s requirement to comply with the manual activation policy; but will serve as a back-up feature to safeguard transparency and accountability.
In addition, an important speed alert feature is currently being developed and included in the cameras at no additional cost. This feature supports the City’s traffic safety initiatives as it provides a speed alert any time a police vehicle is traveling above permitted speeds. While there may be times officers need to travel at a speed above authorized speed limits in the case of an emergency, APD finds value in being able to proactively mitigate risk through these types of alerts. Axon continues to research and develop features that improve police performance and accountability.
The Axon in-car system, when used in conjunction with the Axon body-worn cameras, allows for real-time blending of all the different camera views in "Multicam”. Multicam is a feature in Evidence.com that plays videos recorded by different cameras, synchronized by location and time, in one screen view. This system allows users to view up to four videos of a single incident from different vantage points. The feature is beneficial during administrative reviews, training critiques, and criminal prosecutions.
Privacy
The Alameda Police Department prioritizes the fundamental right to privacy. APD's vendors treat privacy with the sanctity it demands and demonstrates those values in practice. Furthermore, APD ensures that its contractors exemplify the highest transparency, accountability, and integrity and conform to the City's Privacy Resolution 15625.
APD plans to refresh its current mobile ALPR policy with one that mirrors, to the extent possible, the recently added Fixed ALPR Policy 463 (Exhibit 3). This policy was drafted in collaboration with the Executive Director of Secure Justice and is regarded as a policy that exceeds industry standards because its reverence for privacy sets a standard. This non-profit organization advocates for systemic reforms in the public sector intended to reduce government abuses of power. The draft policy was then codified during a City Council meeting held on April 5, 2022, after public and City Council members made suggestions and edits to refine the policy to conform to Alameda's expectations.
APD seeks Council approval of a purchase agreement with Axon to install 23 in-car cameras in the patrol vehicle fleet which will increase transparency and accountability while enhancing officers’ abilities to address specific vehicles involved in crime. This system will further support APD’s initiative on an intelligence-led approach. These cameras will serve various functions, including full integration with the current body-worn camera video/audio recording devices and the City’s newly installed fixed ALPR system with direct digital upload ability into the City’s digital evidence storage system.
ALTERNATIVES
• Approve the proposal to negotiate a contract and purchase.
• Reject the proposal.
• Request additional information.
FINANCIAL IMPACT
Axon is being recommended as it is the only vendor that provides native camera integration with APD's existing:
• Axon/Taser devices,
• Fixed ALPR devices,
• The Evidence.com repository where all audio/video/photographic evidence is uploaded and stored.
No other system can provide this compatibility with our current body-worn cameras and fixed ALPR system. Further, the pricing is based on the Sourcewell cooperative purchasing agreement. Pursuant to the City Purchasing Policy, the City may participate in purchasing contracts established by other jurisdictions.
The total purchase price for the five-year contract is $331.183.35. The Police Department will finance this purchase through Axon over five years.
Funding for the proposed purchase agreement is not yet included in the Police Department’s budget, pending direction from the City Council. If City Council authorizes staff to execute the purchase agreement, funding for the proposed agreement will be incorporated into the Fiscal Year 2023-25 Biennial Budget, subject to City Council appropriations approval in June 2023.
|
Year |
Subtotal |
Tax |
Total |
|
2023 |
$63,234.38 |
$3,002.31 |
$66,236.69 |
|
2024 |
$63,234.38 |
$3,002.31 |
$66,236.69 |
|
2025 |
$63,234.38 |
$3,002.31 |
$66,236.69 |
|
2026 |
$63,234.38 |
$3,002.31 |
$66,236.69 |
|
2027 |
$63,234.38 |
$3,002.31 |
$66,236.69 |
|
Totals |
$316,171.80 |
$15,011.55 |
$331,183.35 |
MUNICIPAL CODE/POLICY DOCUMENT CROSS REFERENCE
This action is authorized under Alameda Administrative Rule 5 and Alameda Municipal Code Section 2-62.5, which exempts contracts with any single or sole source supplier for supplies, materials, equipment, or other personal property from the City's local purchasing policy.
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
Authorize the City Manager to negotiate with Axon Enterprise, Inc. to execute a purchase agreement for the acquisition, support, and maintenance of twenty-three in-car dash cameras with fully integrated automated license plate recognition systems for a not-to-exceed amount of $331,183.35 for five years.
Respectfully submitted,
Nishant Joshi, Chief of Police
By,
Matt McMullen, Police Captain
Financial Impact section reviewed,
Margaret O'Brien, Finance Director
Exhibits:
1. Axon Enterprises, Inc. Sales Quote
2. Axon Enterprises, Inc. Sole Source Letter
3. Fixed ALPR Policy 463