Full Text
CITY OF WOODBURN PHOTO ENFORCEMENT PROGRAM REPORT 2023-2024 SERGEANT COLLEEN ALTABEF WOODBURN POLICE DEPARTMENT 1060 MT HOOD AVE WOODBURN, OR 97071 (503) 982-2345 ---PAGE BREAK--- 2 I P a g e Legislative Report Requirements Oregon Revised Statute (ORS) 810.434 requires cities using photo enforcement camera equipment to conduct a process and outcome evaluation for the legislature once each biennium by March 1 of each odd-numbered year. The law reads as follows: Any city may, at its own cost, operate cameras designed to photograph drivers who: Violate ORS 811.265 (Driver failure to obey traffic control device) by failing to obey a traffic control device; or Violate the speed limit established in ORS 811.111 (Violating a speed limit) by 11 miles per hour or greater or violate the designated speed posted under ORS 810.180 (Designation of maximum speeds) by 11 miles per hour or greater. Cameras operated under this section may be mounted on street lights or put in other suitable places. A city that chooses to operate a camera shall: Provide a public information campaign to inform local drivers about the use of cameras before citations are actually issued; and Once each biennium, conduct a process and outcome evaluation for the purposes of subsection of this section that includes: The effect of the use of cameras on traffic safety; The degree of public acceptance of the use of cameras; and The process of administration of the use of cameras. By March 1 of each odd-numbered year, each city that operates a camera under this section shall present to the Legislative Assembly the process and outcome evaluation conducted by the city under subsection of this section. [1999 c.851 1999 c.1051 §327; 2001 c.474 subsection of 2001 Edition enacted as 2001 c.474 2003 c.14 §491; 2003 c.339 2005 c.686 2007 c.640 2011 c.545 §65] ---PAGE BREAK--- 3 I P a g e Location The City of Woodburn currently has two photo red light/speed enforcement cameras located at the intersection at North Pacific Highway and Mount Hood Avenue. The cameras are mounted to capture violations encountered from vehicles traveling in the North and South directions of North Pacific Highway within the city limits of Woodburn in Marion County, Oregon. The City of Woodburn is committed to ensuring that all traffic signage is up to date and in conformance with Oregon law and standards for automated enforcement. Each major route entering has a “TRAFFIC LAWS PHOTO ENFORCED” sign. In addition, each enforced direction for photo enforcement camera has a “Traffic Signal Ahead” warning sign with a depiction of a photo camera warning beneath it. Purpose, Process & Background The purpose of the City of Woodburn in obtaining photo enforcement camera systems at the intersection of North Pacific Highway and Mt. Hood Avenue was to reduce traffic crashes and increase driver, passenger, and pedestrian safety at that location and within the city, especially with the growth that the city continues to experience in recent years, and the expected growth in upcoming years. This location is the intersecting point of two major thoroughfares through a busy commercial area of the city, with residential neighborhoods within a block of the intersection. There is commonly a steady flow of vehicle, bicycle and pedestrian traffic surrounding that location. The City of Woodburn entered into a contract with Redflex (Now Verra Mobility) photo camera systems in 2010. The system was not fully operational until August of 2013, when the photo red light system was finally installed. Redflex/Verra Mobility began issuing citations in October of 2013, after several warnings were posted in the city’s weekly newsletter that the system was operational. In late 2019, the Woodburn Police Department received ODOT and city council approval to begin using the photo enforcing program to capture and enforce speed violations. However, the activation of the speed photo enforcement was delayed, largely in part due to the COVID-19 pandemic in 2020. In August of 2021, after renewing the contract with Redflex/Verra Mobility, the City of Woodburn began a public notification process through weekly city newsletters and a social media campaign to inform the public of a speed photo enforcement activation at the above- mentioned intersection. The speed enforcement cameras were activated in September of 2021, and a one-month grace period was provided in which warning notices were issued to any ---PAGE BREAK--- 4 I P a g e motorist driving 11 mph or greater above the speed limit. In October of 2021, the photo enforcement program began to issue citations for speed limit violations in addition to red light violations, in accordance with state law. Photo speed and red light cameras are methods of traffic enforcement that are used to detect traffic control violations and record identifying information about the vehicle and driver automatically. Violation evidence for each event is first reviewed by a qualified member of the Redflex/Verra Mobility Program, prior to a secondary review process by a sworn member of the Woodburn Police Department. Once the violation and driver are verified, the citation is approved by the Woodburn Police Department member and violation notices are mailed to the registered owners directly from Redflex/Verra Mobility. This process is required to be completed within 10 days of the violation event. Offenders can review the video of the violation through a website link posted on their citation. Local Court and Police Department contact information is also printed on the citation, should the cited individual have additional inquiries. The full process is detailed on pages 8-10 of this report. July of 2024, Redflex began the process with the City of Woodburn to integrate to new hardware and software platforms called AXSIS, under Verra Mobility. In August of 2024, Verra Mobility began hardware upgrades, with the installation of the new cameras at the intersection in the same locations. The down time for the hardware installation was approximately one week, however, the process delayed the receipt of the violation events from the vendor to the police department for the verification and approval, thus forcing substantial process rejections for violation events for that month. There was also an abnormally low number of speed-related incidents during that timeframe, as the vendor was working to integrate the equipment. By September of 2024, the process appeared to be normalized. On November 10, 2024, the software integration went live, and all new photo enforcement operations were officially moved to the AXSIS software program. The integration afforded similar technical challenges but have been resolved in a timely fashion. Moving forward into 2025, the photo enforcement program continues enhancement the traffic safety in and around the intersection of N. Pacific Highway, meeting its intended purpose. There have been multiple apartment complexes within mere blocks of this location, both to the east and the south, which will presumably create additional traffic, bicycle and pedestrian volume as well in the area. The goal of continuing to provide a safe environment for community members will be a driving factor in any potential growth of this program in the future. ---PAGE BREAK--- 5 I P a g e Past Patterns During the biennium prior to this reporting period [2021-2022], there was an increased traffic volume count of 29% from 4.44 million vehicles to 5.72 million vehicles, travelling through N. Pacific Highway and Mount Hood Avenue. A reasonable expectation would be for traffic offenses to increase with an increase in traffic volume. Despite the increased volume of traffic, the traffic crash data showed a decreased number – however, the data sample is too small to draw a statistically significant conclusion as to causation. Crash data showed 14 and 13 traffic crashes at the target intersection during those years, respectively, with only 2 each year resulting in injury. Red light violations for those years were very similar in number, at 2,911 and 2,961 violations, respectively. The Speed program, which was new in the last quarter of 2021, had the highest impact on traffic safety. In the first 3 months of live operation ,October through December of 2021, the intersection had an average of 1,151. During 2022, the average had dropped to 573 speed violations a month – a 50% decrease over the course of the year. A previous traffic study conducted in 2017 and 2018 found an average of 1,372 speed violations per month through that intersection. Current Trends Traffic volume continues to rise, as would be expected with the growth of the outlying community and the urban growth boundary, as well as the completion of multiple apartment complexes close to this target intersection. The four-year trend of traffic volume growth has been continuous, with the largest jump in 2022, and a steady rise from 2023 to *2024. *Due to the software integration in November of 2024, the final 7 weeks of 2024 were to be averaged based on the first 45 weeks for the final number of 5,781,750. By November 10, the traffic volume had already reached over 5 million. The number of speed violations, though, have continued to decrease year by year, despite the increase in the traffic volume through the area. The average speed violations have decreased each year from 1,150 [2021] to 573 to 419 to 329 [2024]. This 3.25 year trend shows a 71% decrease in speeding violations through that intersection. 3452 6872 5029 3946 4,439,144 5,719,503 5,720,386 5,781,750 2021 2022 2023 2024 Speed Violations vs. Traffic Volume Speed Light Violation Traffic Volume ---PAGE BREAK--- 6 I P a g e The overall combined data for speed and red light violations over the previous two years show the decrease in speed violations and an increase in red light events, with a lesser amount of red light violations being issued. There are various reasons for this to be encountered – slowing for a right-hand turned, but not making a complete stop on red, is a red light violation. However, when members of the police department review events and find that vehicles slow to such a degree that they render said vehicle safe and appropriate, they would choose discretion for the spirit of the law and the purpose of the tool and technology that we have been afforded, and not have the program issue a citation to the driver. There are many factors to consider with a red light violation than just the speed of a vehicle. 3035 75% 642 16% 204 5% 149 4% 2023 Citation Dispositions Citations Paid in Fill Citations Dismissed Citations Returned [Mail] Other [Unpaid/Fail to Appear] 2392 71% 457 14% 71 2% 431 13% 2024 Citation Dispositions Citations Paid in Fill Citations Dismissed Citations Returned [Mail] Other [Unpaid/Fail to Appear] ---PAGE BREAK--- 7 I P a g e Crash data continues to be too low of a sample to draw a statistically significant conclusion. There was, however, a steady increase in traffic volume and no measurable increase in crash date [less than 6 per year]. 2023 had an increase overall to 17 crashes, 2 having injuries reported; while 2024 increased to 18, with 5 injuries reported. Overall, the intersection accounted for just under 3% of the crashed City-wide for both years. As in the past biennium, speed photo enforcement continues to be the most effective measure of success for this program with the 71% decrease in violations since the activation of the speed enforcement feature. The red light program continues to show a continuous level of event triggers, yet citations issued decline, which is a positive indication of possible non-event triggers. According to the National Highway Traffic Safety Administration (NHTSA), speeding was a contributing factor in 29% of all traffic fatalities in 2022. NHTSA lists various factors that ‘drive’ speeding behavior, including the frustrations of traffic congestion, the feeling of anonymity while confined within one’s vehicle and the disregard for the law, whether circumstantially or as a normal driving behavior (“Dangers of Speeding,” “What Drives Speeding?” n.d. Accessed 20Feb2025). With the continuing expansion of the Woodburn urban growth boundary and surrounding area, the City of Woodburn is expected to see a continued increase in traffic volume. As this intersection is and will continue to be a main thoroughfare of the city, it is reasonable to deduce that the aggressive driving behaviors will be centralized to areas such as this. The Photo Enforcement Program continues to impact the anonymity of driving and drivers, with the use of photos and cross- referencing registration and database systems. This application of technology and additional enforcement efforts forces drivers to be cognizant and mindful of the laws in those areas enforced, or risk consequences. 240 5 256 8 159 5 241 3 242 12 146 2 H&R NORMAL ENFORCEMENT H&R PHOTO ENFORCEMENT NON-INJURY NORMAL ENFORCEMENT NON-INJURY PHOTO ENFORCEMENT INJURY NORMAL ENFORCEMENT INJURY PHOTO ENFORCEMENT Number of Crashes Crash Type Category City of Woodburn Crashes Within & Outside of Photo Enforcement Program Intersection 2024 2023 ---PAGE BREAK--- 8 I P a g e Photo Enforcement Process of Administration There are numerous components to the administrative process of a photo enforcement citation. The basic steps involved in issuing a red light and/or speed enforcement citation are: • Violation detection • Violation processing • Vendor quality control checks • Citation review and approval by a police officer and/or traffic enforcement agent • Citation mailing 1. Violation detection occurs when the photo radar detects an offense for the violation of failing to obey a traffic control device or speeding of at least 11 mph. The system can detect a violation for running a red light [Northbound and Southbound lanes] straight through, left turn and making a right turn on a red light without coming to a complete stop. Violation detection also occurs when the photo radar detects a speed limit offense of at least 11 mph in Northbound and Southbound lanes. The speed limit is currently 35 mph in this zone. At least three photographs are generated for each violation. These include the vehicle on approach to the intersection, a close-up photo of the driver during the violation and a close-up picture of the violating vehicle license plate. A short video of the incident is also recorded, showing the complete violation. 2. Violation processing and Vendor quality control checks involve the digital photographic record and video being directly uploaded into a provided software program by our vendor, Verra Mobility. The vendor develops digital photographic records and then reviews the photos. If the vendor can identify the license plate, they send a request to the Oregon Department of Motor Vehicles (DMV) for the registered owner’s information. Oregon DMV sends this information back to Verra Mobility. The details of the violation (such as time, date, location, speed, signal, etc.) are reviewed by the vendor along with the registered owner information. The vendor discards violations where there is no gender match to the registered owner. They may also discard any violations where the driver is not identifiable due to glare, face blocked, or some other factor. ---PAGE BREAK--- 9 I P a g e 3. Citation review and approval by a police officer and/or traffic enforcement agent occurs after violations pass this first screening by the vendor. The event records are then sent to the Woodburn Police Department for review by a police officer and/or authorized traffic enforcement agent. That officer/agent then reviews the records for accuracy, verifies the driver identity, reviews the video to confirm the violation(s), and then digitally signs the citation. 4. Citation mailing is performed by Verra Mobility, once the event and citation is reviewed, verified and approved by an authorized Woodburn Police Department personnel member. Verra Mobility mails the citation, along with a photo from the violation to the registered owner and/or the identified violator. Additionally, a website link is posted on the citation, should the cited person wish to review the video of the violation. Local Court and Police Department contact information is also printed on the citation, should the cited individual have additional inquiries. The citation is mailed to the registered owner within ten business days of the approval of the alleged violation to remain in compliance with Oregon law. The registered owner has thirty days from the mailing of the citation to respond to the citation. They are afforded all the same rights as a defendant would have with any traffic violation and may make an appearance before a Judge in Woodburn Municipal Court to plead their case. If the violation is sent to a business, the business may send in a Certificate of Non- Liability Driver Identification form. They will then make a declaration stating the driver’s name responsible for the citation and sign the form. A citation is then re-issued to the responsible party, after the review process verifies the named person matches the driver photographed in the violation. ---PAGE BREAK--- 10 I P a g e Continued Public Acceptance of the Photo Enforcement Program The City of Woodburn and the Woodburn Police Department work hard to maintain the trust and support of our community. We operate under a transparent leadership that is willing to share any publicly available data from the photo enforcement program. Statistics from the program are gathered each month and forwarded to City Council Meetings, in an effort to keep the community apprised of the program and trends. The city has had very little negative feedback from the continuation of the program, and it is our belief the community accepts that the photo enforcement camera contributes to the safety of the community. The city and the Woodburn Police Department have had very little community member complaints from the photo enforcement system. Complaints or questions received are responded to and any available information regarding the photo enforcement system is explained to the party concerned. Most often, complaints or inquiries regarding the photo enforcement system are due to not fully understanding how the program or system works. The Woodburn Police Department has a variety of methods community members can voice concerns, including in person, telephone contact, through a city social media app, through the City of Woodburn website and via email. Both the Woodburn Police Department and the Woodburn Municipal Court phone numbers, addresses and email addresses are listed on any citations mailed, should anyone receiving a citation have any questions, complaints or concerns about the program.