Title
Automated Enforcement Safety Program Options
Description
This report provides the Transportation, Infrastructure, and Planning Subcommittee with information on considerations and options for a potential Automated Enforcement Safety Program.
THIS ITEM IS FOR DISCUSSION AND POSSIBLE ACTION.
Report
Summary
At the June 13, 2023, City Council Policy Meeting, the Street Transportation Department (Streets) presented findings of a recently completed field study in partnership with the University of Arizona to determine the impacts of extending yellow light timing at signalized intersections. After sharing and discussing the favorable study results, staff received direction to proceed with citywide yellow light timing changes at each of Phoenix’s nearly 1,200 signalized intersections in an effort to reduce red-light running.
Red-light running is one of the riskiest behaviors at signalized intersections. According to a report published by the American Automobile Association (AAA) Foundation for Traffic Safety, more than two people were killed every day across the U.S. due to noncompliance with red signal indications (AAA Foundation for Traffic Safety, 2020). According to a report published by the Insurance Institute for Highway Safety (IIHS), red-light running violations caused 928 fatalities in 2020 in the United States. In addition, an estimated 116,000 people suffered injuries in red-light running collisions (IIHS, 2022). Similar to cities across the nation, red-light running-related violations in the Phoenix metropolitan area have become one of the most severe causes of fatal crashes, with 144 fatalities and 10,685 injuries reported from 2014 to 2021.
As part of the discussion on continuing traffic safety efforts, Council directed staff to conduct research over the summer on automated enforcement safety programs and return to present a summary of the research to the Transportation, Infrastructure, and Planning Subcommittee this fall. The City’s previous Automated Enforcement Safety Program (Program) was officially discontinued in 2020.
This report includes relevant background and historical information, equipment options, information on local automated enforcement programs, pricing models, and site selection considerations should the City initiate a new Program. Streets staff provided information and a similar presentation to the Vision Zero Community Advisory Committee at its August 2023 meeting, and the Public Safety and Justice Subcommittee at its October 2023 meeting.
Background
The City’s previous Program started in 2001 with 10 intersections equipped with red-light cameras and two mobile speed vehicles used in 15 mile per hour (mph) school zones. The intent of the Program was to reduce the number of serious injury and fatal traffic collisions by encouraging voluntary compliance with traffic laws to create a safer street environment. Over the next 18 years, the City held contracts with Lockheed Martin (later becoming Affiliated Computer Systems), American Traffic Solutions, and Redflex Traffic Systems. These contractors provided equipment, maintenance, and other services in support of the Program.
The City’s most recent Program contract was with Redflex Traffic Systems and was in place from Oct. 15, 2014, through Dec. 31, 2019, and included photo enforcement of red-light running at signalized intersections and automated speed enforcement using mobile speed vehicles. Upon contract expiration, the Program included 12 fixed red-light cameras at 12 intersection approaches and a total of eight mobile speed vehicles for specific use in 15 mph school zones and other pedestrian crossing points near schools. The Program was administered by the Phoenix Police Department with support from the Municipal Court and Streets. The 12 intersection locations are listed below.
- Bell Road at 7th Street (eastbound)
- Cactus Road at 35th Avenue (eastbound)
- Camelback Road at 12th Street (eastbound)
- Central Avenue at McDowell Road (southbound)
- Glendale Avenue at 35th Avenue (eastbound)
- Indian School Road at 53rd Avenue (eastbound)
- Ray Road at 50th Street (eastbound)
- Tatum Boulevard at Thunderbird Road (northbound)
- 16th Street at Jefferson Street (southbound)
- 24th Street at Thomas Road (northbound)
- 35th Avenue at McDowell Road (southbound)
- 67th Avenue at McDowell Road (southbound)
At its Jan. 28, 2020, City Council Formal Meeting, the Council chose to not extend the City’s Program contract or procure a new contract for the Program, allowing the City’s Program to end.
In its last full fiscal year (FY) of existence (FY 2018-19), the City’s Program generated approximately $1.3 million in gross revenue from citations. From this gross revenue, the City paid the vendor $31.85 per adjudicated citation. The remaining revenue was sufficient to cover Program costs, including City staff in the Phoenix Police Department (2.0 full-time equivalent staff) and Municipal Court (3.5 full-time equivalent staff). After the vendor payments and staff costs, the net program revenue for that fiscal year was approximately $57,000, while the five-year average net annual revenue was approximately $28,000.
Program Considerations
The utilization of technology as a tool that can automate enforcement has brought several considerations as the technology has been deployed in other cities throughout the Country. Some believe the associated fines are simply a money-making tool. As described above, the previous program was not a significant source of revenue for the City of Phoenix, but the revenue was able to cover costs to administer the program. There are some U.S. cities that do earn significant net revenue through their automated enforcement programs, but those funds are often allocated towards other traffic safety programs and projects. Some have raised concerns about equity issues depending upon placement of the cameras. It is important that camera placement be based on data and safety-based criteria. Additional critics feel red-light violations have little impact on safety because the bulk of the violations occur within one or two seconds after the traffic signal turns red, and there are generally fewer conflicts in the intersection at that time, particularly since most agencies provide a one or two second all-red clearance period before conflicting traffic receives a green signal indication. However, it is an undeniable fact that speeding and red-light running cause thousands of unnecessary deaths each year in the U.S., including crashes in those tenths of a second immediately after the onset of a red signal indication. One additional concern often voiced is that the presence of a red-light camera can cause abrupt braking by drivers with the potential to result in rear-end crashes. Rear-end crashes can potentially be the result of sudden stops at an intersection. Traffic safety engineering professionals are often faced with such trade-offs, but most professionals acknowledge that rear-end crashes generally result in property damage or minor injuries while automated enforcement programs are focused on reducing violent and deadly red-light running crashes.
Phoenix Program - Crash Analysis
In a 2019 before-and-after crash analysis of Phoenix’s Program, data showed a 30.7 percent reduction in red-light running collisions and a 30.4 percent reduction in injuries/fatalities for the 12 intersections (with fixed red-light cameras) in all directions of travel when comparing the three-year period before the installation of red-light cameras (2012-2014) to the three-year period after installation of the red-light cameras (2016-2018). Furthermore, the data for red-light running crashes in the direction of travel monitored by the red-light cameras showed the number of red-light running crashes was reduced 57 percent, based on the same three-year before and three-year after periods. During this same time frame, the City on average experienced a 14.7 percent increase in collisions and a 3.6 percent increase in injuries/fatalities at its intersections that were not equipped with red-light cameras.
Program Equipment Options
The most common devices utilized in automated enforcement systems employ high resolution digital cameras to capture driving infractions for red-light running and speeding. Each of the options described below employ a two-camera system to capture any infractions.
- Red-Light Running: The camera is activated by sensors, which are located just prior to the intersection and also in the intersection. The sensors are only activated when a vehicle is detected entering the intersection after the traffic light has turned red. Three images are captured: one prior to entering the intersection, a second within the intersection, and a third departing the intersection. Multiple images are taken to clearly identify the driver and the vehicle’s license plate. It is possible to set a short grace or amnesty period before the camera is activated. In the Phoenix metro area, the grace period is typically 0.1 seconds. This means the camera would not activate if a driver ran the red light between 0.0 seconds and 0.1 seconds.
- Speed on Green: The camera system mounted at the intersection approach is activated when a vehicle exceeds a set threshold speed as it passes through the intersection. Again, multiple images are captured to clearly identify the driver and the vehicle’s license plate. This device will also enforce speeding through the intersection on yellow and red lights as well.
- Fixed Mid-Block Speed: These devices are permanently mounted mid-block on poles to monitor the speed of each passing vehicle. When the device detects a vehicle exceeding a set threshold speed, the camera system is activated to capture the event, including multiple images to clearly identify the driver and the vehicle’s license plate.
- Portable Speed Towers: These devices are able to be transported and placed adjacent to the roadway to monitor the speed of approaching vehicles. The cameras are activated when a vehicle exceeds a set threshold speed as it passes by the tower and takes multiple images to clearly identify the driver and the vehicle’s license plate. These devices are often utilized in school zones but could be used anywhere adjacent to the roadway, particularly during school breaks.
- Mobile Speed Vehicles: These vehicles are equipped with a camera system to monitor the speed of approaching vehicles. The cameras are activated when a vehicle exceeds a set threshold speed as it passes by the mobile speed vehicle, and takes multiple images to clearly identify the driver and the vehicle’s license plate. The devices are also often used in school zones but could be used elsewhere, particularly during school breaks.
- Other devices/tools: There are additional devices available for deployment, including School Bus Stop Photo Enforcement, Bus and/or Transit Lane Photo Enforcement, Railroad Crossing Photo Enforcement, Intersection Traffic Signal Activation Systems, Work Zone Enforcement, License Plate Recognition Systems, and Vehicle Counting Systems.
Current Programs in the Phoenix Metro Area
The cities of Chandler, Mesa, and Scottsdale, and the Town of Paradise Valley currently have active programs utilizing the equipment described above. Attachment A identifies the number of camera systems in place for each equipment type in the four municipalities.
Program Pricing Models
The automated enforcement industry typically has three pricing models for vendors to provide their services. In each model below, the contracted vendor would supply, install, and maintain the devices in the field as well as provide processing services.
- Revenue Share: There are no city expenditures for equipment, installation, maintenance, or other provided vendor services. The split of citation revenue between the municipality and the vendor is negotiated. The fine per citation locally ranges from approximately $250 to $300 but could be higher on speeding infractions depending on the recorded speed.
- Subscription: The city pays a flat lease fee for equipment, maintenance, and vendor-provided services, but the city retains all citation revenue.
- Hybrid: Similar to the Subscription model, but the city pays a lower lease fee and pays the vendor a nominal fee per adjudicated citation. This fee in local contracts has typically been between $20 and $45 per citation.
There is a fourth option used whereby a municipality could own their own equipment. City-owned systems are very rare due to the specialized equipment, required maintenance and calibration, changing technology, unknown future maintenance and replacement costs, and the uncertainty of future legislation that could impact or prohibit the use of the automated enforcement equipment.
As mentioned earlier, the goal of any automated enforcement safety program should be to modify driver behavior through voluntary compliance of traffic laws. A successful Program will see reductions in speeding and red-light running behavior, resulting in fewer red-light running crashes and serious or fatal injury crashes. Accordingly, Program revenues may fluctuate over time, often reducing as compliance increases. Even after revenues stabilize, many Programs across the country earn a positive net revenue. If a Program is renewed in Phoenix, staff recommends any net revenue realized from the Program be reinvested in traffic safety programs or projects aimed at quicker implementation of the City’s Vision Zero Road Safety Action Plan.
Depending on the type of equipment and the number of locations potentially deployed through a City Program, and how the Program would be administered, additional staff may be needed in Streets, Municipal Court, and/or the Phoenix Police Department.
Program Site Selection Criteria
There is no national standard or consistent methodology that cities use for selecting automated enforcement locations. The Speed Enforcement Camera Systems Operational Guidelines developed in 2008 by the National Highway Traffic Safety Administration (NHTSA) describe crash history as a primary factor that should be considered for location selection.
The Phoenix Police Department continuously compiles citywide traffic crash data and provides it annually to the Arizona Department of Transportation (ADOT). ADOT compiles this data from all jurisdictions statewide and supplies a data summary to all jurisdictions in the Arizona Motor Vehicle Crash Facts report. Streets analyzes the ADOT crash data and uses this data for crash analysis and reporting across the City.
In 2020, Streets staff proposed criteria to help evaluate the highest priority intersections for consideration had the City extended the previous Program. If a new Program were to move forward, Streets recommends using a process similar to the 2020 criteria outlined below for selecting intersection locations for red-light running enforcement.
To identify high incidence locations of red-light running crashes, Streets proposed to analyze the most recent three years of data supplied by ADOT and to isolate crashes attributed to red-light running. Utilizing the three most recent years of data would provide staff the ability to identify trends in crashes at specific locations. In addition to red-light running crashes, Streets criteria also factored in crashes with serious and fatal injuries due to red-light running violations and crashes involving pedestrians at the signalized intersections where the driver was found to be at fault.
For the three data areas described above, Streets proposed a composite and weighted intersection scoring methodology that assigned a value of 10 for each red-light running crash for the highest direction of travel, an additional value of five for each serious and fatal injury at the intersection, and an additional value of five for each crash involving a pedestrian where the driver was found to be at fault. The resulting total scores for each intersection would be used to objectively evaluate and prioritize the installation of red-light camera locations.
The methodology of determining red-light camera locations would also include Streets staff evaluating each potential location to determine if other factors, such as available of right-of-way, utility conflicts, current and upcoming construction projects, and jurisdictional considerations might make installation of a red-light camera at a particular intersection not feasible.
Streets would utilize this methodology to conduct an annual review of the most recent crash data and develop a report proposing new red-light camera locations. This report would be provided to Council for review and approval. Streets would further recommend that red-light running cameras remain in place for a minimum of three years to properly evaluate their effectiveness in improving the safety of the intersections.
With the City’s previous Program, a coordinated effort between the vendor and City staff was used to identify 250 suitable locations near schools where the mobile speed vehicles were rotated to monitor and enforce speeds. These same sites would still be appropriate for a new Program, and additional school sites could be considered. Depending on the number of speed monitoring devices incorporated in the Program, this equipment could also be deployed in non-school locations to address road segments that experience significant speeding or speed-related crashes.
In addition, during Streets’ presentation on its Yellow Light Timing Field Study at the Jan. 24, 2023, City Council Policy meeting, Council directed Streets staff to install additional traffic monitoring equipment at Phoenix’s most dangerous intersections from the Maricopa Association of Governments’ list of the top 100 intersections by crash risk. Streets anticipates that the equipment it installs at these intersections will collect critical data on driver behavior, including red-light running incidents, that could also be used to identify and prioritize locations for a Program.
Vision Zero Community Advisory Committee Feedback
Streets staff presented Automated Enforcement Safety Program options to the Vision Zero Community Advisory Committee at its Aug. 17, 2023, meeting. Overall, there was general support for a Program, but staff did receive the following comments from individual members:
One member suggested it would be more appropriate to pause any consideration of implementing a Program until such time that the Citywide yellow light timing changes could be implemented and fully evaluated. Additionally, another member asked staff to consider engineering solutions to help prevent speeding and red-light running before implementing an automated enforcement solution. An additional comment from another member suggested staff reconsider the intersection rating metrics to give more weight to pedestrian crashes when comparing intersection and prioritizing potential red-light camera locations.
As presented to Council at its June 13, 2023, meeting, Streets staff anticipates the yellow light timing changes will take approximately three years to implement, which does not include the time to hire the necessary staff to implement these timing changes or to conduct a thorough evaluation after changes are made. This engineering solution and many others are continuously being implemented and evaluated as part of the comprehensive Vision Zero Road Safety Action Plan adopted by Council in September 2022.
While the Yellow Light Timing Study did show significant reductions in red-light running, by no means was red-light running eliminated. The re-start of a Program would be an additional tool to help encourage safer driver behaviors to further reduce red-light running and supplement traditional police enforcement. It should be noted that the proposed intersection rating metrics to prioritize placement of red-light cameras have not been finalized. Streets staff is evaluating metrics and open to give more weight to vehicle-pedestrian crashes, particularly those that may have involved red-light running in the metrics.
Recommendation
Staff requests input from the Transportation, Infrastructure, and Planning Subcommittee regarding the consideration and possible implementation of a new Automated Enforcement Safety Program for the City of Phoenix.
Department
Responsible Department
This item is submitted by Deputy City Manager Alan Stephenson and the Street Transportation Department.