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HomeMy WebLinkAboutRPT 2 TRAF SAFETY ANAL 12-7-81 12-7~81 Inter-Corn TO: FROM: SUBJECT: HCNORABLE M~YCR AND CITY CC~3NCIL BILL ~3STCN, CITY MANAGER TRAFFIC SAFETY EVALUATICN-E~FORCEMEN~ AND ENGIN~.RRING ANALYSIS The attached report is informational only and does not require any specific City Council action. DISCUSSIC~: Earlier this year the City requested that the University of California Berkeley, Institute of Transportation Studies, conduct an evaluation of the City's traffic enforcement and engineering functions. The Institute is recognized as a leader in the field of traffic engineering and enforcement and conducts evaluations for cities in California at no cost. The attached report was prepared following a two day conprehensive review of the City's traffic engineering and traffic enforcement functions by two consultants frc~ the Institute. It is important to note that the overall conclusion of the evaluation is that the City's traffic engineering and enforcement functions are efficient and productive when measured against coamonly accepted traffic engineering and enforcement standards. The reconmlendations contained in the evaluation will be implemented by the Public Works and Police Departments. BILL HUSTClq, City Manager 'Tustin Traffic Safety Evaluation Enforcement and I:nglneer nalysls INSTITUTE OF TRANSPORTATION STUDIES UNIVERSITY OF CALIFORNIA, BERKELEY August 1981 UNIVERSITY OF CALIFORNIA. BERKELEY I~STITUTE OF TRANSPORTATION STUDIES EXTENSION PROGRAblS ROOM 12 NORTHGATE BERKELEY, CALIFORNIA 94720 (41~) 642-7~$0 October 12, 1981 Mr. William "Bill" Houston City Manager City of Tustin City Hall 300 Centennial Tustin, CA 92680 Dear Mr. Houston: At your request, the Enforcement and Engineering Team of the In- stitute of Transportation Studies, University of California, Berkeley, conducted an analysis of Tustin's traffic safety pro- grams. Enclosed are five copies of our evaluation. In the interest of improved traffic safety we hope the City of Tustin will implement the reco~L~L~endations contained within the evaluation. The Team will be available to discuss its recom- mendations and findings if you have any questions or need further assistance. Within the next six to twelve months the Team will conduct a follow-up visit with the City of Tustin. Should you need any assistance in the i~m~ediate future, please feel free to contact us at any time. The Team wishes to express its appreciation to you and your staff for the courtesy and assistance extended. Very truly yours~-. Michael S. Garver/ ? _ ~ Traffic Enforceme~/~onsultant ~ MSG:jaf Encls. CITY OF TUSTIN AN ENFORCEMENT AND ENGINEERING ANALYSIS OF THE TRAFFIC SAFETY PROGRAMS September 1981 Population 37,400 Area: Sq. Miles 11.4 Institute of Transportation Studies University of California 102 Naval Architecture Berkeley, California 94720 CITY' OF TUSTIN AN ENFORCEMENT & ENGINEERING ANALYSIS OF THE TRAFFIC SAFETY PROGRAMS September 1981 This report was produced in cooperation with the City of Tustin, State Office of Traffic Safety, and the California Highway Patrol. The opinions, findings and conclusions expressed in this publi- cation are those of the authors and not necessarily those of the organizations listed above. This report was prepared under Project Number 158002 of the Cali- fornia Office of Traffic Safety. Enforcement: Engineering: Michael S. Garver Charles E. Haley, P.E. Institute of Transportation Studies University of California 102 Naval Architecture Berkeley, California 94720 TABLE OF CONTENTS INTRODUCTION OBJECTIVES AND SCOPE STUDY PROCEDURE SUMMARY OF RECOMMENDATIONS ENFORCEMENT EVALUATION ENGINEER/NG EVALUATION Pa~e ii iii iv 16 INTRODUCTION The City of Tustin, in an effort to examine its existing traf- fic enforcement and engineering programs, requested the Insti- tute of Transportation Studies, University of California, to perform an enforcement and engineering evaluation of the City's traffic safety programs. This report surmmarizes the findings of the evaluation. The authors wish to express their appreciation for the splendid cooperation of all staff members of the City of Tustin they came in contact with and especially: William "Bill" Houston N. E. "Woody Williams Jerry Smith Bob Ledendecker Norman D. Hower David M. Poage ~ugh West Bob Lee City Manager Police Captain Police Sergeant Director of Public Works City Traffic Engineer Jr. Civil Engineer Maintenance Superintendent Sign Maintenance OBJECTIVES AND SCOPE The primary objective of this project is to reduce traffic acci- dents in the City by strengthening the City's enforcement and engineering programs. Aspects of the traffic enforcement and traffic engineering programs were evaluated within the time available and recommendations made in keeping with the size of the community and available personnel. Emphasis is placed upon increasing employee and program efficiency, not increasing man- power. This is accomplished by improving program techniques and employee performance. For further assistance or clarifica- tion, please feel free to contact the Enforcement and Engineering Team. STUDY PROCEDURE At the request of Mr. William Houston, City Manager, the two-man Enforcement and Engineering Team visited with personnel September 22 & 23, 1981. After an orientation meeting with the City Mana- ger and enforcement and engineering personnel, the Team members proceeded separately to their respective areas of interest. Re- cords were examined, employee discussions held, and field observa- tions made. Info~mation was freely exchanged and this report is the result of that exchange. iii SUMMARY OF RE'COMMENDATTONS ENFORCEMENT 1 - Develop .Written Job Statements For Traffic Unit Personnel The Department should seriously consider developing written job des- criptions for those officers assigend to the Traffic Unit. The job statements or descriptions should include primary responsibilities, duties, priorities, expected trair~ing , and chain of command. 2 - Develop Quantifiable Traffic Related Goals The Department should develop separate quantifiable traffic goals aimed at the reduction of total accidents, increased enforcement contacts, and increased drinking driver apprehensions. The Department s~ould develop a quarterly reporting system rela- tive to these traffic goals. The reporting system should be aimed at reporting progress or lack thereof toward these objectives. 3 - Focus More Enforcement Activity Toward Right-of-Way Violations The Department should consider emphasizing in a selective manner the issuance of more right-of-way citations. Less focus should be placed upon those violations for the various sign and signal ru/es. 4 - Examine the Possible Increase in The Number of Two-Wheel V.ehicle Accidents The Department should be prepared to develop a special enforcement and accident reduction program aimed at two-wheel vehicles that in- clude mopeds, bicycles, and motorcycles. The Department should con- sider both selective enforcement efforts and an educational progra~ aimed at these drivers. 5 - Change Color Scheme on Accident Pin Map to Denote Primary Collision Factors Rather Than Severity of Accident The Police Department should consider changing the color coding process on its accident pin map to reflect the Pr/mary Collision Factor rather than the severity or type of accident. · The Department should also consider maintaining the accident pin map on either a quarterly or annual basis. iv 6 - Obtain High Accident Location List From City Traffic En- gineering Personnel The Police Department should encourage the development of and obtain a list of high accident locations based on rates rather than raw numbers. These high accident location rates should be used in de- ploying traffic personnel assigned to T~stin Police Department. ENGINEERING 1 - Ensure That All Property Damage Accident Copies Are Filed Into the Accident System It is imperative for Traffic Engineering analysis that all accident records are filed in the accident locations system. 2 - Reduce the Number and length of Time That Traffic Counts Are Made As the accuracy of traffic counting equipment is generally plus or minus five percent, it is really unnecessar~ to count more than a 24-hour period with proper supervision. Also, it is possible to reduce the number of count locations without seriously affecting the data. 3 - Produce a High Accident List Produce a High Accident List on a rate basis for traffic engineering analysis. 4 - Consider the Establishment of a Bottleneck Fund A small a,~unt of mone~ could possibly be budgeted each year for the elimination of hazards or the improvement of traffic facilities de- veloped by the high accident analysis program. 5 - Improve Signing Techniques · Date all signs equipped with reflective sheeting upon leaving the shop. Finish the Arterial Street Sign Program at signalized intersections using reflectorized signs installed on the vertical part of the mastarm pole. Examine the record of repair and replacement actions of stop signs, yield signs, and warning signs to ensure a record is available for the future with respect to City liability. V ENFORCEMENT EVALUATION I. POLICE ORGANIZATION AND ADMINISTRATION A. Police'Department Structure At the present time, the Tustin Police Department consists of 55 sworn, police personnel. The Department is headed by a Chief of Police (Charles R. Thayer) with the assistance of two Captains and four Lieutenants. Organizationally, the Police Department is separated in two main divisions: Operations and Investigations/Services. Each of these two organizationsal divisions are supervised by Captains. Within the Operations Division are the following units. Patrol, Canine, Traffic, Communications, and Reserves. The Traffic Unit consists of one Sergeant, one Agent, 'four Police Offi- cers, one Parking Control Officer, and one parttime Clerk/ Crossing Guard Coordinator. The Department's Patrol Unit consists of three Lieutenants, four Sergeants, and 26 Police Officers. The Department's Investigation/Services Division consists of two sub-units: Services and Investigations. The Services sub-unit is supervised by a Lieutenant with the assistance of a records supervisor. The Investigations Unit consists of two Sergeants and eight investigators. The Operations Division provides the full range of patrol services as well as traffic enforcement and co~m~Lunications. The Services Division handles such tasks as records, person- nel, training, property and evidence, buildings maintenance and purchasing. The Investigations Unit is responsible for such typical tasks as vice and intelligence, narcotics, and crimes against persons and property. In addition to the 55 sworn police personnel, the Tustin Police Department also employs 24 non-uniformed civilian employees. The De- partment is also responsible for supervising the City's 21 part-time crossing guards. 1 B. Traffic Services Experience As mentioned above, the Tustin Police Department's Traffic Unit consists primarily of one Sergeant, one Agent and four Police Officers. The Traffic Unit is responsible for the following functions: select~ve traffic enforcement, acci- dent ~nvestigation, school ieducation program, crossing guards, parking ~nforcement, and the review of all accident investigation reports. Ail Police Officers assigned to Tus- fin's Traffic Enforcement Unit are deployed on police motor- cycles. It should be noted, at this point, that the super- visor assigned to the Traffic Enforcement Unit has recently assumed the job. He is consequently, becoming very involved in supervisory practices within the Unit and is making some very innovative changes at this time. C. Written Job Statements Many innovative law enforcement organizations use written job statements or descriptions for their specialized positions. This especially holds true for the Traffic Officer position since it normally is not seen as a truly pe=manent classifi- cation. The written job description makes expectations and duties clearly understood to all personnel and provides needed control and accountability for management. At the time of the Team's visit to Tustin the Traffic Enforcement Unit did not have formalized written job statements for its traffic enforce- ment personnel. Consequently, the following recon=~endation should be considered. Recommendation ~1 Develop Written Job Statements For Traffic Unit Personnel The Department should seriously consider developing written job descriptions for those officers assigned to the Traffic Uni~. The job statements or descript/ons should include primary responsibilities, duites, priorities, expected training, and chain of command. Once these job statements are developed all supervisory personnel, as well as the members assigned to the Traffic Enforcement Unit, will have a clear and consistent idea regarding program priorities, assignment of call, etc. D. Selection and Assignment of Personnel to Traffic Unit The selection process used in assigning personnel to the Traffic Unit within Tustin Police Department is outstanding and quite competitive. Officers first show an interest in the program by volunteering for the job. The selection pro- cess used by the Police Department involves a competitive oral interview that requires a certain amount of study and expertise prior to the assignment. Candidates are tested on their knowledge of traffic related matters. During the Team's visit to the Tustin Police Department, it was noted that sev- eral officers inquired with the traffic supervisor regarding potential openings within the Unit. This typically indicates a positive work environment and a successful and strong pro- gram. The Department is to be commended for the methods it uses to assign people to its Traffic Enforcement Unit. The rate of turnover within the Unit appears to be one to one and one-half years. At the outside, this turnover rate would seem to indicate a lack of stability within the Unit. This, however, is not the case. Turnovers within the Unit have resulted due to promotions and resignations from the Department. Consequently, the turnover rate in the past is outside the Department's control. The Department is do- ing a good job in selecting its personnel and insuring a proper level of training for all traffic unit members. E. Specialized Traffic Related Training At the present time, the newly assigned supervisor working within the Tustin Police Deparment Traffic Unit has made arrangements to attend a Traffic Supervision Course in Northern California. Additionally, all officers assigned to the Unit are required to complete a 40-hour advanced Accident Investigation Course as well as courses in Com- mercial Enforcement Training and the Speed From Skid Marks Course. This level of training is excellent and insures the Department a solid Traffic Enforcement and Accident Investigation Program. The Department should continue to emphasize specialized traffic related training in order to compensate for any turnover within the Traffic Unit. F. External Planning Function Most innovative law enforcement organizations today in Cali- fornia are becoming actively involved in the community plan- ning function. This endeavor, for the most part, has evolved out the increased emphasis in prevention, rather than being "reactive" at a later date. Typically, police personnel interact with planning department staff members and traffic engineering offices in the early review phases of construction and development. This permits proper planning which then in- cludes the prevention and enforcement point of view. Police personnel should review plans and environmental impact reports relating to housing, oommercial and industrial developments. This endeavor should be aimed at both the traffic and criminal concerns and will assist the department in its internal, long- range planning effort. The Tustin Police Department is actively involved in the external planning function through- out the community. This is commendable and reflects favor- ably upon the Police Department and the City. G.. Quantifiable Traffic Related Goals At the present time, the Tustin Police Department does not maintain a set of written, quantifiable traffic related goals. Without exception, the visiting Team recommends that each Police Department establish a set of Quantifiable Traf- fic related goals. These goals should be established based upon a priority system and the City's ability to meet the goals within its available resources. Within the Depart- ment's budget preparation package, a general traffic related goal has been developed. The following is a direct quotation from the Department's budget. "To provide for the City of Tustin general and specialized traffic law enforcement and traffic accident investigation Dy specially trained traffic enforcement motorcycle officers." Beginning in October 1977, the Tustin Police Department opera- ted a federally funded Traffic Enforcement Accident Reduction Team. This selective enforcement program was funded through a Grant by the Office of Traffic Safety. During the time this Federally Funded Selective Traffic Enforcement Pro- gram was in operation, the Department maintained a series of grant or project objectives. These objectives (seven in total) addressed such program goals as increasing the number of citations issued, and specifically relating those citations to the major accident causing violations. Additionally the program objectives called for a quantifiable reduc- tion in accidents, etc. The objectives established during 5 the federally funded grant are the types of goals the visiting Team recommends. The Department should seriously consider re- es%ablishing these types of quantifiable objectives or goals. Recommendation ~2 Develop Quantifiable Traffic Related Goals · The Department should develop separate quantifiable traffic goals aimed at the reduction of total accidents, increased enforcement contacts, and increased drinking driver apprehensions. · The Department should develop a quarterly reporting system relative to these traffic goals. The reporting system should be aimed at reporting progress or lack there- of toward these objectives. For additional clarification relative to departmental traffic goals, the Department should consider the following co~=~ents. Accident reduction goals should be aimed at total accidents within the City rather than fatal or injury accidents only. Also, any goal established relating to an increase in enforce- ment contacts should be aimed at those violations that cause the majority of the City's accidents. This last comment is similar to program objective B as established within the De- partment's federally funded traffic enforcement grant. II. TRAFFIC ENFORCEMENT PROGRAM A. Enforcement Statistics and Records Typically, at this point in the Team's written evaluation, a lengthy discussion takes place concerning the types of enforcement statistics and records the department maintains or should maintain in the future. Since the traffic Super- visor (Sergeant Jerry Smith) has taken over the unit, he has developed a very unique set of enforcement statistics and report formats. These enforcement reports describe specifically what the Department is doing in the traffic en- forcement area by each shift worked within the Department. Overall, the reports and data being collected are outstanding. Sergeant Smith is to be commended for his innovative and thoughtful approach to developing management data. The infor- mation maintained is "on target" and is not overly cumbersome or labor intensive. The types of data elements that Sergeant Smith is considering are those that are needed in order to properly management the Department's selective ~nforcement and accident =eduction urogram. Sergeant Smith should be co~,ended specifically by Department ~anagement for the excellent job he has done in taking over the Unit and developing the needed information in a useable form. This information is used to Sergeant Smith has developed a monthly overview of traffic information in a summary form. This information is used to keep management advised of activity within the Department's traffic program as well as keeping the general officers in~ terested in this specialized area. The Team will be using Tustin's ~raffic ~nforcement formats as an example of excel- lent data when it visits other Cities throughout California. B. Selective Enforcement Techniques At the present time, ~raffic Officer personnel are being de- ployed by their supervisor in a very specified manner. Each month the Traffic Unit Sergeant provides written directions to members of his unit relative to the locations that dic- tate emphasized enforcement. These locations have been de- veloped based upon high accident frequencies, high accident locations, and time of day. This method of deployment is excellent. Again, the Traffic Unit Supervisor should be commended for this approach to the efficient utilization of his l~mited resources. In addition to the above deployment methods, the Traffic Unit supervisor will be experimenting during the next month with an approach where one traffic officer is used to handle all accident investigations. This approach will permit the re- maining four motorcycle officers to be used almost exclusively for selective traffic enforcement. Again, this indicates the strong type of program management that exists within the Tus- tin Police Department Traffic Unit. The new supervisor is attempting new approaches and alternatives in an effort to accomplish program goals. These are the types of things the visiting Team reco~ends in order to reduce the number of accidents the City is experiencing. Recently, the Traffic Supervisor conducted an analysis of the City's accidents by time of day. He has conscientiously attempte~ to deploy his units at different shift start times in order to provide maximum enforcement during a series of core hours when accidents have a tendency to peak within the City. This is an excellent approach at attempting to reduce the City's traffic accidents and improve traffic safety with- in the jursdiction. In order for a traffic enforcement and accident reduction program to be successful and "on target" a proportionate number of citations need to be issued for the leading acci- dent causing violations within Tustin. Through the Traffic Supervisor's monthly report, the leading accident causing violations (Primary Collision Factors) are distributed to each shift and each officer assigned to both patrol and traffic. Emphasis is placed on issuing citations for these leading accident causing violations. Again, this is an excellent technique. C. Quantity and Quality of Enforcement Activities The Department's monthly statistical report for August, in- dicates a significant increase in moving citations both for the month of August and year-to-date figures. Year-to-date figures, indicate that the Department has experienced a 68% increase in moving citations for the months of 1981 compared to those for 1980. Overall, the issuance of citations have continued to increase within the Tustin Police Department during the years 1979 through the current month of 1981. The Department is to be commended for its increased emphasis and productivity in the enforcement activity area. The num- ber of citations being issued by members assigned to the Traffic Unit is quite reasonable based upon the total work- load within the unit. A review of the quality of enforcement activity was made by visiting Team. The following observations were noted. Accidents caused by right-of-way violations account for approximately 20% of the City's collisions. Conversely, approximately 9% of the Department's enforcement activity was for this accident causing violation. Also, it was noted that approximately 8% of all accidents within the City of Tusitn are caused by sign or signal violations. This is contrasted with approximately 44% of all enforcement acti- vity being issued for the same violation. Consequently, the Department should consider emphasizing more right-of-way violations and significantly less sign and signal citations. This recommendation is in keeping with a strong selective enforcement and accident reduction program. Recommendation ~3 Focus More Enforcement Activity Toward Right-of-Way Violations The Department should consider emphasizing in a selective manner the issuance of more right-of- way citations. Less focus should be placed upon those violations for the various sign and signal rules. Overall, the Department is doing an excellent job specifi- cally with its selective enforcement efforts. III. During the month of September, 1981, the Tustin Police De- partment has experienced an unusually high number of acci- dents involving mopeds bicycles and motorcycles. The num- Ber O~ accidents involving ~-/%ese 'vehlcles have increased substantially for a single month. Additionally, the visit- ing Team observed numerous mopeds during its visit to the City of Tustin. The Police Department should be attentive to what appears to be a significant increase in two-wheel vehicle accidents that are now occurring within this juris- diction. The number of accidents involving these types of vehicles appears to be quite disproportionate. Consequently, the following recommendation appears to be in order at this time. Recommendation %4 Examine the Possible Increase in The Number of Two-Wheel Vehicle Accidents The Department should be prepared to develop a spe- cial enforcement and accident reduction program aimed at two-wheel vehicles that include mopeds, bicycles, and mmtorcycles. The Department should consider both selective enforcement efforts and an educational program aimed at these drivers. ACCIDENT INVESTIGATION AND RECORDS' SY'ST=M A. Accident Investigation Policy The Tustin Police Department maintains a written policy that requires an accident report or investigation in all instances. The Department makes use of both the CHP Short Fo~m accident report and the l cnger version for the mc~e detailed investi- gations. This approach is excellent and insures service to the citizen as well as efficient utilization of resources by the Department. Based upon the properly balanced ratio 'of 10 injury to p~operty damage accidents, it is apparent that the City of Tustin is doing a commendable job investigating all types of accidents that occur on City streets. B. Utilization of Accident Pin Map At the present time, t_he Tustin Police Department maintains an accident Pin map. This Rccident pin map is maintained within the Department's briefing or squad room. The loca- tion of the pin map is an excellent place within the Depart- ment in that it provides maximum utilization to all person- nel in addition to those assigned to the Traffic Unit. At the present time, the pin map is developed by using two dif- ferent colored pins. These pins denote either injury or fa- tal accidents or those involving property damage only. The pin map is changed on a monthly basis. Utilization of an accident pin map in a briefing or squad room is an excellent method for increasing departmental awareness as it relates to accident reduction. The visiting Team recommends that an accident pin map used within a Police Department denote the Primary Collision Factor rather than the severity of the accident. By using the Primary Collision Factor the Pa- trol Officers can determine where and what types of viola- tions are involved in the City's accidents. Additionally, it may be appropriate to maintain the pin map on either a quarterly or annual basis rather than changing it monthly. In order to accomodate a quarterly or annual pin map, the Department should consider obtaining the largest possible map it can from the Public Works Department. Regarding the Department's accident pin map, the following recom- 'mendation appears to be in order. 11 Reco~L~aendation ~5 Change Color Scheme on ACcid'en~ Pin Map to Denote Primary Collision Factors Rather Than Severity of Accident * The Police Department should consider changing the color coding process on its accident pin map to reflect the Primary Collision Factor rather than the severity or type of accident. · The Department should also consider maintaining the accident pin map on either a quarterly or annual basis. C. Utilization of SWITRS Data Data that was obtained by the Team from the Statewide Inte- grated Records System (SW~TRS) for the years 1978 through 1980, indicate that property damage accidents were not being forwarded to the SWITRS Center in Sacramento. At the end of the first quarter 1981 the Tustin Police Department became aware of the fact that property damage accidents should also be forwarded to Sacramento. Consequently, beginning in late March or early April 1981 the Department began forwarding all accident reports to the SWITRS Unit. Considering the fact that the SWITRS statistical reports are used by the Police and Engineering Departments within the City of Tustin it is absolutely essential that the data be as complete as possi- ble. Consequently, arrangements have been made with the SWITRS Unit in Sacramento to process those property damage accidents that were inadvertently not forwarded during the first quarter 1981. As a minor recommendation of this re- port, the Police Department should batch and forward all pro- perty damage accident reports that occurred during the first quarter of 1981 to the Statewide Integrated Traffic Records Unit in Sacramento. Arrangements have been made within the Police Department to accomplish this recommendation. Once all records have been forwarded to Sacramento, the City will be able to assume that 1981 data are complete. This 12 will be especially important during t_he following year when anaylitical comparisons will be made. The Sergeant assigned to the Traffic Unit is familiar with the SWITRS report formats. He routinely conducts the needed statistical analysis of his accident data and uses this in- formation in a meaningful way in order to supervise his pro- gram. D. High Accident Location List At the present time, the Tustin Police Department develops a list of high accident locations. This list or summary is based upon the raw number of accidents that take place at any one location. This high accident location list is distributed to traffic and patrol personnel in order to de- ploy the limited resources the Department bas in an effici- ent manner. Also important in looking at high accident lo- cations is the method of developing a list based upon acci- dent rates rather than raw numbers. Accident rates are de- termined by looking at traffic volumes and raw statistics. This latter method is more relative to deploying traffic enforcement units. Recommendation %6 Obtain High Accident Location List From City Traffic Engineering Personnel The Police Department should encourage the development of and obtain a list of high accident locations based on rates rather than raw numbers. These high accident location rates should be used in deploying traffic personnel assigned to Tustin Police Department. Quality of Accident Investigations A randomly selected sample of 1981 accident reports was screened for accuracy, format, and content. Overall, the 13 quality of the accident reports reviewed was outstanding. The content and format were in compliance with the Califor- nia Highway Patrol Collision Investigation Manual. Diagrams were very well drawn and the overall content flowed logically to the report's conclusions. The Department is to be commend- ed for the excellent job it is doing within the accident in- vestifation field. IV. DRINKING DRIVER APPREHENSION PROGRAM A. An Overview At the present time, the Tustin Police Department does not have a formalized drinking driver apprehension program. During the past year, however, the Department has experimented on three separate occasions with running a special drinking driver arrest team. This indicates to the visiting Team that the Department continues to examine its own programs with an attempt at maximizing departmental efficiency. During these three separate drinking driver test programs, the Department was extremely successful in its endeavors. On the average, during the time these programs were in place, each officer assigned to the program arrested approximately two drinking drivers per night. This is an excellent effort and should be followed up with a formalized program. The visiting Team examined the average blood alcohol levels of those arrested during the time fram of March through September 1981. Of the 49 blood alcohol sample's examined, the average level ranged from 117 to 118 B.A.C. This average blood alcohol level is excellent. As a very minor recommendation of this report the department should continue to stress lowering the B.A. level between the .10 to .15% B.A.C. which is the presumptive level by law. Overall, the Department is very aware of the drinking driver problems within the City and is attempting to address these problems within it limited resources. Again, the Department is to be commended for an excellent effort in this particular area. 14 V. TRAFFIC SAFETY WITHIN THE CITY OF TUSTIN A. An Overview During the Enforcement and Engineering Team!s existence, we have had the opportunity to evaluate nearly 40 cities. As a summary comment, it can be stated (without a doubt) that the City of Tustin has one of the finest traffic en- forcement and accident reduction programs reviewed to date. Without hesitation, the Team believes that the job being performed by Sergeant Jerry Smith is quite commendable. Sergeant Smith in the short time he has been assigned to the Unit has implemented many positive changes to improve the Department's traffic enforcement efforts. Overall, the Team was very favorably impressed with what it saw within the Tustin Police Department. The recommendations contained within this report are not indicators of any specific pro- gram weaknesses. Recommendations within this report-should be perceived as very minor fine tuning comments for a well run organization. 15 I. FORWARD ENGINEERING EVALUATION The Engineering member of the Enforcement and Engineering Team wishes to congratulate the City of Tustin on the excellence of its Public Works and Traffic Engineering Program. The records system for identifying accident locations, the design and opera- tion of the street system, and the maintenance of signs, signals and markings were outstanding. The Engineering Program was far superior to other Cities of its size that the Team has visited. In the opinion of the Team Engineer this excellence was not due to overstaffing, but to the professionalism and dedication of those employees contacted. Therefore, this report will be brief with but five recommendations for consideration by the Public Works Department. I I . ORGANI ZATI ON III. The Department of Public Works provides the Traffic Engineering Services for the City of Tustin. The Department is divided into four divisions: Engineering Division, Street, Park and Tree Division, Water Service Division, and Vehicle Service and Build- ing Facility Division. The City Code Section 5313 establishes the Office of City Traffic Engineer who is appointed by the City Manager. The Code also delineates the duties of the City Traffic Engineer which are both broad and detailed. ADMINISTRATION The Administration of the Traffic and Transportation Program of the City of Tustin originates with the Director of Public Works through the City Traffic Engineer. The City Traffic Engineer 16 is a registered professional, who is well versed in the latest traffic engineering techniques, procedures, and specifications. He has been assisted by an Engineering Aid who is very knowledgeable in the sub-professional area and most dedicated. This position is now vacant due to a promotion. The installation and maintenance of traffic signals and markings are handled through a contractual relationship. The condition of the signals and markings during the Team visit was outstanding. One employee, supervised by the Maintenance Superintendent, handles all traffic sign and marking stenciling maintenance. The condition of the traffic signs and the markings was outstanding. IV. IDENTIFICATION AND SURVEILLANCE OF ACCIDENT LOCATIONS The Public Works Department is to be commended for its efforts in the area of Identification and Surveillance of Accident Locations. The following is a brief discussion of the City's present program and a few suggestions for improvements. A. Accident Location System The Identification and Surveillance of Accident Locations is one of the most important aspects of a traffic engineering program.1 The "bottom line" of such a program is the develop- ment of design and maintenance recommendations, and cost esti- mates for the improvement of Traffic Control Devices, Street Lighting, and Intersection and Street Improvements listed in order of priority. The City of Tustin's program is excep- tional. Accident reports are received from the Police Depart- ment. Each intersection and street segment in the City is designated by a number. A file has been set up for each 1 "Manual of Traffic Engineering Studies, Institute of Transportation Engineers." 17 intersection and street segment and the accident copies are filed accordingly. A three year record is maintained. Thus, at a moment's notice the accident history of any intersection or street segment is available for examination or analysis. However, in examining the monthly s~ary it appeared that possibly not all of the property damage accidents were being filed. This may not be the case, but generally there are about two to three times as many property damage accidents as injury accidents and the totals of these summaries were not in these proportions. Recommendation 81 Ensure That Ail Property Damage Accident Copies Are Filed Into The Accident System It is imperative for Traffic Engineering analysis that all accident records are filed in the accident locations system. B. Traffic Volume Program The Traffic Volume Program in the City was excellent. A Traffic Volume Map is produced each year for use by the City staff and the citizens of the community. However, it is possible that the number of count locations could be reduced, and that the length of time the count is taken at any loca- tion could be reduced, without seriously effecting the accur- acy of the data. Except for a few special locations it is really unnecessary to count for more than a 24 hour period. Recommendation 82 Reduce the Number and Length of Time That Traffic Counts Are Made As the accuracy of traffic counting equipment is generally plus or minus five percent, it is really unnecessar~ to count more than a 24-hour period with proper supervision. Also, it is possible to reduce the number of count locations without seriously affecting the data. 18 C. High Accident Location List While the Traffic Engineer and Public Works Director are qognizant of high accident locations, it is suggested for improved enforcement and engineering analysis that a high location list be produced. Some jurisdictions would in- clude in this list all locations with five or more accidents. It is recommended that accident rates be calculated for this high accident list, as the traffic volumes are available. The Traffic Engineer can then examine the collision diagrams of the highest accident locations to determine possible re- medial measures. Recommendation %3 Produce a High Accident List Produce a High Accident List on a rate basis for traffic engineering analysis. D. Collision Diagrams The City of Tustin has a excellent Collision Diagram File. E. Improvement Program The Public Works Department has developed an outstanding capital improvement program for improvement of streets, traffic signals, the innerconnect of traffic signals, and other safety improvements. In conjunction with the high accident studies the City might consider, within this capitol program, budgeting a small amount of money in the neighborhood of 10 to $15,000 for minor safety improvements as ascertained.through the analysis of the high accident list for safety improvements. 19 Recommendation ~4 Consider the Establishment of a Bottleneck Fund A small ammunt of money could possi- bly be budgeted each year for the elimination of hazards or the im- provement of traffic facilities de- veloped by the high accident analysis program. IV. TRAFFIC OPERATIONS The operations of the street system which includes the signs, signals and markings was outstanding. Only a few minor sug- gestions follow. It is suggested that all signs which are equipped with reflective sheeting be dated when they leave the shop. This will enable the maintenance personnel to gain ex- perience as to the life of the reflective sheeting used, and to develop an orderly replacement program.' The City of Tustin is using the illuminated large "Arterial Street Name Signs" at a number of signalized intersections. However, because a number of signalized intersections are still equipped with old marblelite poles which would not support these heavy illuminated signs out on the mastarm, a number of intersections are not equipped with these large signs. It is suggested that large street signs of this size could be as- sembled by the City and installed on the vertical portion of the mastarm pole without fear of structural failure due to high winds. While excellent workorder records are kept of repair actions with respect to replacement and maintenance of stop signs and warning wigns, not all such replacements come to the mainten- ance personnel through the workorder system. It is suggested that the maintenance superintendent examine the records system so that any repair or replacement action of a stop sign, yield sign, or warning sign, is recorded in some fashion. Possibly 20 this might be accomplished through the daily worklOg. This record keeping will be invaluable in protecting the City from liability. Recommendation %5 'Improve Signing Techniques · Date all signs equipped with reflective sheeting upon leaving the shop. Finish the Arterial Street Sign Program at signalized intersections using re- flectorized signs installed on the ver- tical part of the mastarm pole. Examine the record of repa/r and re- placement actions of stop signs, yield signs, and warning signs to ensure a record is available for the future with respect to City liability. V. POLICE AND' ENGINEERING COOPERATION The Engineering and Police cooperation and coordination in the City of Tustin was excellent. It was indeed a pleasure for the Engineering member of the Team to have been associated, though for a brief period, with the employees of the City of Tustin. 21 TO: FROM: SUBJECT: HCNORABLE MAYCR AND CITY CCUNCIL BILL ~3STCN, CITY MANAGER TRAFFIC SAFETY EVALUATICt~-ENFORCEM~ AND M~GINR.~.RING AN~r.¥SIS The attached report is informational omly and does not require any specific City Council action. DISCUSSICt~: Earlier this year the City requested that the University of California Berkeley, Institute of Transportation Studies, conduct an evaluation of the City's traffic enforcement and engineering functions. The Institute is recognized as a leader in the field of traffic engineering and enforcement and co~ducts evaluations for cities in California at no cost. The attached repor, t was prepared follOWing a two day comprehensive review of the City's traffic engineering and traffic enforcement functions by two consultants from the Institute. It is important to note that the overall conclusion of the evaluation is that the City's traffic engineering and enforcement functions are efficient and productive when measured against ccmmomly accepted traffic engineering and enforcement standards. The recon~endations contained in the evaluation will be implemented by the Public Works and Police Departments. City Manager -ustin ~_. , Traffic Safety Evaluation Enforce. rr)ent and Engineer nalysis INSTITUTE OF TRANSPORTATION STUDIES UNIVERSITY OF CAUFORNIA, BERKELEY August 1981 UNIVERSITY OF CALIFORNIA, BERKELEY BEP. F~LEY · DA. VIS · lltvl~ · LOS AN(~~r]~ · ~II~i~ · ~ DI~O · ~ ~C~O (x ~ ~ B~ · ~ CR~ ~$TIT~TE OF T~NS~RTATION STUD[~ ~TENSION PROG~S ROOM 12 NORTHGATE BER~Y, ~FO~ 94720 (415) ~2-7~0 October 12, 1981 Mr. William "Bill" Houston City Manager City of Tustin City Hall 300 Centennial T~stin, CA 92680 Dear Mr. Houston: At your request, the Enforcement and Engineering Team of the In- stitute of Transportation Studies, University of California, Berkeley, conducted an analysis of Tustin's traffic safety pro- grams. Enclosed are five copies of our evaluation. In the interest of improved traffic safety we hope the City of Tustin will implement the reco~m~ndations contained within the evaluation. The Team will be available to discuss its recom- mendations and findings if you have any questions or need further assistance. Within the next six to twelve months the Team will conduct a follow-up visit with the City of Tustin. Should you need any assistance in the immediate future, please feel free to contact us at any time. The Team wishes to express its appreciation to you and your staff for the courtesy and assistance extended. Very truly yours~_~-. Michael S. Garver{ ? ~ Traffic Enforceme~//Consultant ~ MSG:jaf Encls. CITY OF TUSTIN AN ENFORCEMENT AND ENGINEERING ANALYSIS OF THE TRAFFIC SAFETY PROGRAMS September 1981 Population 37,400 Area: Sq. Miles 11.4 Institute of Transportation Studies University of California 102 Naval Architecture Berkeley, California 94720 CITY OF TUSTIN AN ENFORCEMENT & ENGINEERING ANALYSIS OF THE TRAFFIC SAFETY PROGRAMS September 1981 This report was produced in cooperation with the City of Tustin, State Office of Traffic Safety, and the California Highway Patrol. The opinions, findings and conclusions expressed in this publi- cation are those of the authors and not necessarily those of the organizations listed above. This report was prepared under Project Number 158002 of the Cali- fornia Office of Traffic Safety. Enforcement: Michael S. Garver Engineering: Charles E. Haley, P.E. Institute of Transportation Studies University of California 102 Naval Architecture Berkeley, California 94720 TABLE OF CONTENTS Page INTRODUCTION OBJECTIVES AND SCOPE STUDY PROCEDURE SUMMARY OF RECOMMENDATIONS ENFORCEMENT EVALUATION ENGINEERING EVALUATION ii iii iv 16 I NTRO'DUCTION The City of Tustin, in an effort to examine its existing traf- fic enforcement and engineering programs, requested the Insti- tute of Transportation Studies, University of California, to perform an enforcement and engineering' evaluation of the City's traffic safety programs. This report summarizes the findings of the evaluation. The authors wish to express their appreciation for the splendid cooperation of all staff members of the City of Tustin they came in contact with and especially: William "Bill" Houston N. E. "Woody Williams Jerry Smith Bob Ledendecker Norman D. Hower David M. Poage Hugh West Bob Lee City Manager Police Captain Police Sergeant Director of Public Works City Traffic Engineer Jr. Civil Engineer Maintenance Superintendent Sign Maintenance OBJECTIVES AND SCOPE · The primary objective of this project is to reduce traffic acci- dents in the City by strengthening the City's enforcement and engineering programs. Aspects of the traffic enforcement and traffic engineering programs were evaluated within the time available and recommendations made in keeping with the size of the community and available personnel. Emphasis is placed upon increasing employee and program efficiency, not increasing man- power. This is accomplished by improving program techniques and employee performance. For further assistance or clarifica- tion, please feel free to contact the Enforcement and Engineering Team. ii STUDY PROCEDURE At the request of Mr. William Houston, City Manager, the two-man Enforcement and Engineering Team visited with personnel September 22 & 23, 1981. After an orientation meeting with the City Mana- ger and enforcement and engineering personnel, the Team members proceeded separately to their respective areas of interest. Re- cords were examined, employee discussions held, and field observa- tions made. Info~,ation was freely exchanged and this report is the result of that exchange. iii SUMbIARY OF RECO~iENDATTONS ENFORCEMENT 1 - Develop .Written Job Statements For Traffic Unit Personnel The Department should seriously consider developing written job des- criptions for those officers assigend to the Traffic Unit. The job s~atements or descriptions should include primary responsibilities, duties, priorities, expected training, and chain of co~and. 2 - Develop Quantifiable Traffic Related Goals · The Department should develop separate quantifiable traffic goals aimmd at the reduction of total accidents, increased enforcement contacts, and increased drinking driver apprehensions. The Department s~ould develop a quarterly reporting system rela- tive to these traffic goals. The reporting system should be aimed at reporting progress or lack thereof toward these objectives. 3 - Focus More Enforcement Activity Toward Right-of-Way Violations The Department should consider emphasizing in a selective manner the issuance of more right-of-way citations. Less focus should be placed upon those violations for the various sign and signal rules. 4 - Examine the Possible Increase in The Number of Two-Wheel Vehicle Accidents The Department should be prepared to develop a special enforcement and accident reduction program aimed at two-wheel vehicles that in- clude mopeds, bicycles, and m~torcycles. The Department should con- sider both selective enforcement efforts and an educational program aimed at these drivers. 5 - Chan~e Color Scheme on Accident Pin Map to Denote Primary Coll~sion Factors Rather Than Severity of Accident The Police Department should consider changing the color coding process on its accident pin map to reflect the Primary Collision Factor rather than the severity or type of accident. · The Department should also consider maintaining the accident pin map on either a quarterly or annual basis. iv 6 - Obtain High Accident Location List Prom City Traffic En- gineering Personnel The Police Department should encourage the develo~ment of and obtain a list of high accident locations based on rates rather tJ~an raw numbers. These high accident location rates should be used in de- ploying traffic personnel assigned to Tustin Police Department. ENGINEERING 1 - Ensure That Ail Property Damage Accident Copies Are Filed Into the Accident System It is imperative for Traffic Engineering analysis that all accident records are filed in the accident locations system. 2 - Reduce the Number and length of Time That Traffic Counts Are Made As the accuracy of traffic counting equipment is generally plus or minus five percent, it is really unnecessarF to count more than a 24-hour period with proper supervision. Also, it is possible to reduce the number of count locations without seriously affecting the data. Produce a High Accident List Produce a High Accident List on a rate basis for traffic engineering analysis. 4 - Consider the Establishment of a Bottleneck Fund A small amount of money could possibly be budgeted each year for the elimination of hazards or the improvement of traffic facilities de- veloped by the high accident analysis program. 5 - Improve Signing Techniques · Date all signs equipped with reflective sheeting upon leaving the shop. Finish the Arterial Street Sign Program at signalized intersections using reflectorized signs installed on the vertical part of the mastarm pole. Examine the record of repair and replacement actions of stop signs, yield signs, and warning signs to ensure a record is available for the future with respect to City liability. v ENFORCEMENT EVALUATION I. POLICE ORGANIZATION AND ADMINISTRATION A. Police Department Structure At the present time, the Tustin Police Department consists of 55 sworn, police personnel. The Department is headed by a Chief of Police (Charles R. Thayer) with the assistance of two Captains and four Lieutenants. Organizationally, the Police Department is separated in two main divisions: Operations and Investigations/Services. Each of these two organizationsal divisions are supervised by Captains. Within the Operations Division are the following units. Patrol, Canine, Traffic, Co~mLLunications, and Reserves. The Traffic Unit consists of one Sergeant, one Agent, four Police Offi- cers, one Parking Control Officer, and one parttime Clerk/ Crossing Guard Coordinator. The Department's Patrol Unit consists of three Lieutenants, four Sergeants, and 26 Police Officers. The Department's Investigation/Services Division consists of two sub-units: Services and Investigations. The Services sub-unit is supervised by a Lieutenant with the assistance of a records supervisor. The Investigations Unit consists of two Sergeants and eight investigators. The Operations Division provides the full range of patrol services as well as traffic enforcement and co~m~unications. The Services Division handles such tasks as records, person- nel, training, property and evidence, buildings maintenance and purchasing. The Investigations Unit is responsible for such typical tasks as vice and intelligence, narcotics, and crimes against persons and property. In addition to the 55 sworn police personnel, the Tustin Police Department also employs 24 non-uniformed civilian employees. The De- partment is also responsible for supervising the City's 21 part-time crossing guards. B. Traffic Services Experience As mentioned above, the Tustin Police Department's Traffic Unit consists primarily of one Sergeant, one Agent and four Police Officers. The Traffic Unit is responsible for the following functions: Select~ve traffic enforcement, acci- dent investigation, school ~ducation program, crossing guards, parking ~nforcement, and the review of all accident investigation reports. All Police Officers assigned to Tus- fin's Traffic Enforcement Unit are deployed on police motor- cycles. It should be noted, at this point, that the super- visor assigned to the Traffic Enforcement Unit has recently assumed the job. He is consequently, becoming very involved in supervisory practices within the Unit and is making some very innovative changes at this time. C. written Job Statements Many innovative law enforcement organizations use written job statements or descriptions for their specialized positions. This especially holds true for the Traffic officer position since it normally is not seen as a truly pe&manent classifi- cation. The written job description makes expectations and duties clearly understood to all personnel and provides needed control and accountability for management. At the time of the Team's visit to Tustin the Traffic Enforcement Unit did not have formalized written job statements for its traffic enforce- ment personnel. Consequently, the following reco~L=LLendation should be considered. 2 Recommendation 91 Develop Written Job Statements For Traffic Unit Personnel The Department should seriously consider developing written job descriptions for those officers assigned to the Traffic Unit. The job statements or descript/ons should include primary responsibilities, duites, priorities, expected training, and chain of command. Once these job statements are developed all supervisory personnel, as well as the members assigned to the Traffic Enforcement Unit, will have a clear and consistent idea regarding program priorities, assignment of call, etc. D. Selection and Assignment of Personnel to Traffic Unit The selection process used in assigning personnel to the Traffic Unit within Tustin Police Department is outstanding and quite competitive. Officers first show an interest in the program by volunteering for the job. The selection pro- cess used by the Police Department involves a competitive oral interview that requires a certain amount of study and expertise prior to the assignment. Candidates are tested on their knowledge of traffic related matters. During the Team's visit to the Tustin Police Department, it was noted that sev- eral officers inquired with the traffic supervisor regarding potential openings within the Unit. This typically indicates a positive work environment and a successful and strong pro- gram. The Department is to be commended for the methods it uses to assign people to its Traffic Enforcement Unit. The rate of turnover within the Unit appears to be one to one and one-half years. At the outside, this turnover rate would seem to indicate a lack of stability within the Unit. This, however, is not the case. Turnovers within the Unit have resulted due to promotions and resignations from the Department. Consequently, the turnover rate in the past is outside the Department's control. The Department is do- ing a good job in selecting its personnel and insuring a proper level of training for all traffic unit members. E. Specialized Traffic Related Training At the present time, the newly assigned supervisor working within the Tustin Police Deparment Traffic Unit has made arrangements to attend a Traffic Supervision Course in Northern California. Additionally, all officers assigned to the Unit are required to complete a 40-hour advanced Accident Investigation Course as well as courses in Com- mercial Enforcement Training and the Speed From Skid Marks Course. This level of training is excellent and insures the Department a solid Traffic Enforcement and Accident Investigation Program. The Department should continue to emphasize specialized traffic related training in order to compensate for any turnover within the Traffic Unit. External Planning Function Most innovative law enforcement organizations today in Cali- fornia are becoming actively involved in the community plan- ning function. This endeavor, for the most part, has evolved out the increased emphasis in prevention, rather than being "reactive" at a later date. Typically, police personnel interact with planning department staff members and traffic engineering offices in the early review phases of construction and development. This permits proper planning which then in- cludes the prevention and enforcement point of view. Police personnel should review plans and environmental impact reports relating to housing, oommercial and industrial developments. This endeavor should be aimed at both the traffic and criminal concerns and will assist the department in its internal, long- range planning effort. The Tustin Police Department is actively involved in the external planning function through- out the community. This is commendable and reflects favor- ably upon the Police Department and the City, G.. Quantifiable Traffic Related Goals At the present time, the Tustin Police Department does not maintain a set of written, quantifiable traffic related goals. Without exception, the visiting Team recommends that each Police Department establish a set of Quantifiable Traf- fic related goals. These goals should be established based upon a priority system and the City's ability to meet the goals within its available resources. Within the Depart- ment's budget preparation package, a general traffic related goal has been developed. The following is a direct quotation from the Department's budget. "To provide for the City of Tustin general and specialized traffic law enforcement and traffic accident investigation Dy specially trained traffic enforcement motorcycle officers." Beginning in October 1977, the Tustin Police Department opera- ted a federally funded Traffic Enforcement Accident Reduction Team. This selective enforcement program was funded through a Grant by the Office of Traffic Safety. During the time this Federally Funded Selective Traffic Enforcement Pro- gram was in operation, the Department maintained a series of grant or project objectives. These objectives (seven in total) addressed such program goals as increasing the number of citations issued, and specifically relating those citations to the major accident causing violations. Additionally the program objectives called for a quantifiable reduc- tion in accidents, etc. The objectives established during the federally funded grant are the types of goals the visiting Team recommends. The Department should seriously consider re- establishing these types of quantifiable objectives or goals. Reco~=~endation ~2 Develop Quantifiable Traffic Related Goals · The Department should develop separate quantifiable traffic goals aimed at the reduction of total accidents, increased enforcement contacts, and increased drinking driver apprehensions. · The Department should develop a quarterly reporting system relative to these traffic goals. The reporting system should be aimed at reporting progress or lack there- of toward these objectives. For additional clarification relative to departmental traffic goals, the Department should consider the following comments. Accident reduction goals should be aimed at total accidents within the City rather than fatal or injury accidents only. Also, any goal established relating to an increase in enforce- ment contacts should be aimed at those violations that cause the majority of the City's accidents. This last comment is similar to program objective B as established within the De- partment's federally funded traffic enforcement grant. II. TRAFFIC ENFORCEMENT PROGRAM A. Enforcement Statistics and Records Typically, at this point in the Team's written evaluation, a lengthy discussion takes place concerning the types of enforcement statistics and records the department maintains or should maintain in the future. Since the traffic Super- visor (Sergeant Jerry Smith) has taken over the unit, he has developed a very unique set of enforcement statistics and report formats. These enforcement repomts describe specifically what the Department is doing in the traffic en- forcement area by each shift worked within the Department. Overall, the reports and data being collected are outstanding. Sergeant Smith is to be commended for his innovative and thoughtful approach to developing management data. The infor- mation maintained is "on target" and is not overly cumbersome or labor intensive. The types of data elements that Sergeant Smith is considering are those that are needed in order to properly management the Department's Selective ~nforcement and accident =eduction program. Sergeant Smith should be commended specifically by Department Management for the excellent job he has done in taking over the Unit and developing the needed info&mation in a useable fo~m. This information is used to Sergeant Smith has developed a monthly overview of traffic information in a s~ary for~. This information is used to keep management advised of activity within the Department's traffic program as well as keeping the general officers in- terested in this specialized area. The Team will be using Tustin's traffic ~nforcement formats as an example of excel- lent data when it visits other Cities throughout California. B. Selective Enforcement Techniques At the present time, ~raffic Officer personnel are being de- ployed by their supervisor in a very specified manner. Each month the Traffic Unit Sergeant provides written directions to members of his unit relative to the locations that dic- tate emphasized enforcement. These locations have been de- veloped based upon high accident frequencies, high accident locations, and time of day. This method of deployment is excellent. Again, the Traffic Unit Supervisor should be commended for this approach to the efficient utilization of his l~mited resources. In addition to the above deployment methods, the Traffic Unit supervisor will be experimenting during the next month with an approach where one traffic officer is used to handle all accident investigations. This approach will permit the re- maining four motorcycle officers to be used almost exclusively for selective traffic enforcement. Again, this indicates the strong type of program management that exists within the Tus- tin Police Department Traffic Unit. The new supervisor is attempting new approaches and alternatives in an effort to accomplish program goals. These are the types of things the visiting Team reco~m~Lends in order to reduce the number of accidents the City is experiencing. Recently, the Traffic Supervisor conducted an analysis of the City's accidents by time of day. He has conscientiously attempte~ to deploy his units at different shift start times in order to provide maximum enforcement during a series of core hours when accidents have a tendency to peak within the City. This is an excellent approach at attempting to reduce the City's traffic accidents and improve traffic safety with- in the jursdiction. In order for a traffic enforcement and accident reduction program to be successful and "on target" a proportionate number of citations need to be issued for the leading acci- dent causing violations within Tustin. Through the Traffic Supervisor's monthly report, the leading accident causing violations (Primary Collision Factors) are distributed to each shift and each officer assigned to both patrol and traffic. Emphasis is placed on issuing citations for these leading accident causing violations. Again, this is an excellent technique. C. Quantity and Quality of Enforcement Activities The Department's monthly statistical report for August, in- dicates a significant increase in moving citations both for the month of August and year-to-date figures. Year-to-date figures, indicate that the Department has experienced a 68% increase in moving citations for the months of 1981 compared to those for 1980. Overall, the issuance of citations have continued to increase within the Tustin Police Department during the years 1979 through the current month of 1981. The Department is to be commended for its increased emphasis and productivity in the enforcement activity area. The num- ber of citations being issued by members assigned to the Traffic Unit is quite reasonable based upon the total work- load within the Unit. A review of the quality of enforcement activity was made by visiting Team. The following observations were noted. Accidents caused by right-of-way violations account for approximately 20% of the City's collisions. Conversely, approximately 9% of the Department's enforcement activity was for this accident causing violation. Also, it was noted that approximately 8% of all accidents within the City of Tusitn are caused by sign or signal violations. This is contrasted with approximately 44% of all enforcement acti- vity being issued for the same violation. Consequently, the Department should consider emphasizing more right-of-way violations and significantly less sign and signal citations. This reco~endation is in keeping with a strong selective enforcement and accident reduction program. Reco~t=uendation %3 Focus More Enforcement Activity Toward Right-of-Way Violations The Department shDuld consider emphasizing in a selective manner the issuance of'more right-of- way citations. Less focus should be placed upon those violations for the various sign and signal rules. Overall, the Department is doing an excellent job specifi- cally with its selective enforcement efforts. III. During the month of Septen%ber, 1981, the Tustin Police De- partment has experienced an unusually high number of acci- dents involving mopeds bicycles and motorcycles. The num- ber of accidents involving these vehicles have increased substantially for a single month. Additionally, the visit- ing Team observed numerous mopeds during its visit to the City of Tustin. The Police Department should be attentive to what appears to be a significant increase in two-wheel vehicle accidents that are now occurring within this juris- diction. The number of accidents involving these types of vehicles appears to be quite disproportionate. Consequently, the following recommendation appears to be in order at this time. Recommendation Examine the Possible Increase in The Number of Two-Wheel Vehicle Accidents The Department should be prepared to develop a spe- cial enforcement and accident reduction program aimed at two-wheel vehicles that include mopeds, bicycles, and motorcycles. The Department should consider both selective enforcement efforts and an educational program aimed at these drivers. ACCIDENT INVESTIGATION AND RECORDS SYS'£=M A. Accident Investigation Policy The Tustin Police Department maintains a written policy that requires an accident report or investigation in all instances. The Department makes use of both the CHP Short Fo=m accident report and the l~ger version for the mere detailed investi- gations. This approach is excellent and insures service to the citizen as well as efficient utilization of resources by the Department. Based upon the properly balanced ratio 'of 10 injury to property damage accidents, it is apparent that the City of Tustin is doing a commendable job investigating all types of accidents that occur on City streets. B. Utilization of Accident Pin Map At the present time, the Tustin Police Department maintains an accident pin map. This accident pin map is maintained within the Department's briefing or squad room. The loca- tion of the pin map is an excellent place within the Depart- ment in that it provides maximum utilization to all person- nel in addition to those assigned to the Traffic Unit. At the present time, the pin map is developed by using two dif- ferent colored pins. These pins denote either injury or fa- tal accidents or those involving property damage only. The pin map is changed on a monthly basis. Utilization of an accident pin map in a briefing or squad room is an excellent method for increasing departmental awareness as it relates to accident reduction. The visiting Team reco~u,~ends that an accident pin map used within a Police Department denote the Primary Collision Factor rather than the severity of the accident. By using the Primary Collision Factor the Pa- trol Officers can dete=mine where and what types of viola- tions are involved in the City's accidents. Additionally, it may be'appropriate to maintain the pin map on either a quarterly or annual basis rather than changing it monthly. In order to accomodate a quarterly or annual pin map, the Department should Consider obtaining the largest possible map it can from the Public Works Department. Regarding the Department's accident pin map, the following recom- 'mendation appears to be in order. 11 Reco~,~endation ~5 Change Color Scheme on ACcident Pin Map to Uenote Primary Collision Factors Rather Than Severity of ~ccident * The Police Department should consider changing the color coding process on its accident pin map to reflect the Primary Collision Factor rather than the severity or type of accident. · The Department should also consider maintaining the accident pin map on either a quarterly or annual basis. C. Utilization of SWITRS Data Data that was obtained by the Team from the Statewide Inte- grated Records System (SWI~TRS) for the years 1978 through 1980, indicate that property damage accidents were not being forwarded to the SWITRS Center in Sacramento. At the end of the first quarter 1981 the Tustin Police Department became aware of the fact that property damage accidents should also be forwarded to Sacramento. Consequently, beginning in late March or early April 1981 the Department began forwarding all accident reports to the SWITRS Unit. Considering the fact that the SWITRS statistical reports are used by the Police and Engineering Departments within the City of Tustin it is absolutely essential that the data be as complete as possi- ble. Consequently, arrangements have been made with the SWITRS Unit in Sacramento to process those property damage accidents that were inadvertently not forwarded during the first quarter 1981. As a minor recommendation of this re- port, the Police Department should batch and forward all pro- perty damage accident reports that occurred during the first quarter of 1981 to the Statewide Integrated Traffic Records Unit in Sacramento. Arrangements have been made within the Police Department to accomplish this recommendation. Once all records have been forwarded to Sacramento, the City will be able to assume that 1981 data are complete. This 12 will be especially important during the following year when anaylitical comparisons will be made. The Sergeant assigned to the Traffic Unit is familiar with the SWITRS report formats. He routinely conducts the needed statistical analysis of his accident data and uses this in- formation in a meaningful way in order to supervise his pro- gram. D. High Accident Location List At the present time, the Tustin Police Department develops a list of high accident locations. This list or summary is based upon the raw number of accidents that take place at any one location. This high accident location list is distributed to traffic and patrol personnel in order to de- ploy the limited resources the Department bas in an effici- ent manner. Also important in looking at high accident lo- cations is the method of developing a list based upon acci- dent rates rather than raw numbers. Accident rates are de- termined by looking at traffic volumes and raw statistics. This latter method is more relative to deploying traffic enforcement units. Recommendation %6 Obtain High Accident Location List From City Traffic Engineering Personnel The Police Department should encourage the development of and obtain a list of high accident locations based on rates rather than raw numbers. These high accident location rates should be used in deploying traffic personnel assigned to Tustin Police Department. Quality of Accident Investigations A randomly selected sample of 1981 accident reports was screened for accuracy, format, and content. Overall, the 13 quality of the accident reports reviewed was outstanding. The content and format were in compliance with the Califor- nia Highway Patrol Collision Investigation Manual. Diagrams were very well drawn and the overall content flowed logically to the report's conclusions. The Department is to be commend- ed for the excellent job it is doing within the accident in- vestifation field. IV. DRINKING DRIVER APPREHENSION PROGRAM A. An Overview At the present time, the Tustin Police Department does not have a formalized drinking driver .apprehension program. During the past year, however, the Department has experimented on three separate occasions with running a special drinking driver arrest team. This indicates to the visiting Team that the Department continues to examine its own programs with an attempt at maximizing departmental efficiency. During these three separate drinking driver test programs, the Department was extremely successful in its endeavors. On the average, during the time these programs were in place, each officer assigned to the program arrested approximately two drinking drivers per night. This is an excellent effort and should be followed up with a formalized program. The visiting Team examined the average blood alcohol levels of those arrested during the time fram of March through September 1981. Of the 49 blood alcohol samples examined, the average level ranged from 117 to 118 B.A.C. This average blood alcohol level is excellent. As a very minor recommendation of this report the department should continue to stress lowering the B.A. level between the .10 to .15% B.A.C. which is the presumptive level by law. Overall, the Department is very aware of the drinking driver problems within the City and is attempting to address these problems within it limited resources. Again, the Department is to be commended for an excellent effort in this particular area. 14 V. TRAFFIC SAFETY WITHIN THE CITY OF TUSTIN A. An Overview During the Enforcement and Engineering Team's existence, we have had the opportunity to evaluate nearly 40 cities. As a summary comment, it can be stated (without a doubt) that the City of Tustin has one of the finest traffic en- forcement and accident reduction programs reviewed to date. Without hesitation, the Team believes that the job being performed by Sergeant Jerry Smith is quite commendable. Sergeant Smith in the short time he has been assigned to the Unit has implemented many positive changes to improve the Department's traffic enforcement efforts. Overall, the Team was very favorably impressed with what it saw within the Tustin Police Department. The recommendations contained within this report are not indicators of any specific pro- gram weaknesses. Recommendations within this report-should be perceived as very minor fine tuning comments for a well run organization. 15 FORWARD ENGINEERING EVALUATION The Engineering member of the Enforcement and Engineering Team wishes to congratulate the City of Tustin on the excellence of its Public Works and Traffic Engineering Program. The records system for identifying accident locations, the design and opera- tion of the street system, and the maintenance of signs, signals and markings were outstanding. The Engineering Program was far superior to other Cities of its size that the Team has visited. In the opinion of the Team Engineer this excellence was not due to overstaffing, but to the professionalism and dedication of those employees contacted. Therefore, this report will be brief with but five recommendations for consideration by the Public Works Department. II. ORGANIZATION III. The Depar ~,ent of Public Works provides the Traffic Engineering Services for the City of Tustin. The Department is divided into four divisions: Engineering Division, Street, Park and Tree Division, Water Service Division, and Vehicle Service and Build- ing Facility Division. The City Code Section 5313 establishes the Office of City Traffic Engineer who is appointed by the City Manager. The Code also delineates the duties of the City Traffic Engineer which are both broad and detailed. ADMINISTRATION The Administration of the Traffic and Transportation Program of the City of Tustin originates with the Director of Public Works through the City Traffic Engineer. The City Traffic Engineer 16 I. is a registered professional, who is well versed in the latest traffic engineering techniques, procedures, and specifications. He has been assisted by an Engineering Aid who is very knowledgeable in the sub-professional area and most dedicated. This position is now vacant due to a promotion. The installation and maintenance of traffic signals and markings are handled through a contractual relationship. The condition of the signals and markings during the Team visit was outstanding. One employee, supervised by the Maintenance Superintendent, handles all traffic sign and marking stenciling maintenance. The condition of the traffic signs and the markings was outstanding. IV. IDENTIFICATION AND SURVEILLANCE OF ACCIDENT LOCATIONS The Public Works Department is to be co~m~ended for its efforts in the area of Identification and Surveillance of Accident Locations. The following is a brief discussion of the City's present program and a few suggestions for improvements. A. Accident Location System The Identification and Surveillance of Accident Locations is one of the most important aspects of a traffic engineering program.1 The "bottom line" of such a program is the develop- ment of design and maintenance recor~endations, and cost esti- mates for the improvement of Traffic Control Devices, Street Lighting, and Intersection and Street Improvements listed in order of priority. The City of Tustin's program is excep- tional. Accident reports are received from the Police Depart- ment. Each intersection and street segment in the City is designated by a number. A file has been set up for each 1 "Manual of Traffic Engineering Studies, Institute of Transportation Engineers." 17 intersection and street segment and the accident copies are filed accordingly. A three year record is maintained. Thus, at a moment's notice the accident history of any intersection or street segment is available for examination or analysis. However, in examining the monthly s~m~ry it appeared that possibly not all of the property damage accidents were being filed. This may not be the case, but generally there are about two to three times as many property damage accidents as injury accidents and the totals of these summaries were not in these proportions. Recommendation ~1 Ensure That Ail Property Damage Accident Copies Are Filed Into The Accident System It is imperative for Traffic Engineering analysis that all accident records are filed in the accident locations system. B. Traffic Volume Program The Traffic Volume Program in the City was excellent. A Traffic Volume Map is produced each year for use by the City staff and the citizens of the community. However, it is possible that the number of count locations could be reduced, and that the length of time the count is taken at any loca- tion could be reduced, without seriously effecting the accur- acy of the data. Except for a few special locations it is really unnecessary to count for more than a 24 hour period. Recommendation %2 Reduce the Number and Length of Time That Traffic Counts Are Made As the accuracy of traffic counting equipment is generally plus or minus five percent, it is really unnecessary to count more than a 24-hour period with proper supervision. Also, it is possible to reduce the number of count locations without seriously affecting the data. 18 C. High Accident Location List While the Traffic Engineer and Public Works Director are ~ognizant of high accident locations, it is suggested for improved enforcement and engineering analysis that a high location list be produced. Some jurisdictions would in- clude in this list all locations with five or more accidents. It is recommended that accident rates be calculated for this high accident list, as the traffic volumes are available. The Traffic Engineer can then examine the collision diagrams of the highest accident locations to determine possible re- medial measures. Recommendation ~3 Produce a High Accident List Produce a High Accident List on a rate basis for traffic engineering analysis. D. Collision Diagrams The City of Tustin has a excellent Collision Diagram File. E. Improvement Program The Public Works Department has developed an outstanding capital improvement program for improvement of streets, traffic signals, the innerconnect of traffic signals, and other safety improvements. In conjunction with the high accident studies the City might consider, within this capitol program, budgeting a small amount of money in the neighborhood of 10 to $15,000 for minor safety improvements as ascertained through the analysis of the high accident list for safety improvements. 19 Recommendation ~4 Consider the Establishment of a Bottleneck Fund A small ammun= of ~ne~ could possi- blF be budge=ed each gear for ~he elimination of hazards or the im- provement of traffic facilities de- veloped bg the high accident analysis program. IV. TRAFFIC OPERATIONS The operations of the street system which includes the signs, signals and markings was outstanding. Only a few minor sug- gestions follow. It is suggested that all signs which are equipped with reflective sheeting be dated when they leave the shop. This will enable the maintenance personnel to gain ex- perience as to the life of the reflective sheeting used, and to develop an orderly replacement program. The City of Tustin is using the illuminated large "Arterial Street Name Signs" at a number of signalized intersections. However, because a number of signalized intersections are still equipped with old marblelite poles which would not support these heavy illuminated signs out on the mastarm, a number of intersections are not equipped with these large signs. It is suggested that large street signs of this size could be as- sembled by the City and installed on the vertical portion of the mastarm pole without fear of structural failure due to high winds. While excellent workorder records are kept of repair actions with respect to replacement and maintenance of stop signs and warning wigns, not all such replacements come to the mainten- ance personnel through the workorder system. It is suggested that the maintenance superintendent examine the records system so that any repair or replacement action of a stop sign, yield sign, or warning sign, is recorded in some fashion. Possibly 20 this might be accomplished through the daily worklOg. This record keeping will be invaluable in protecting the City from liability. Recommendation %5 Improve Signing Techniques Date all signs equipped with reflective sheeting upon leaving the shop. Finish the Arterial Street Sign Program at signalized intersections using re- flectorized signs installed on the ver- tical part of the mastarm pole. Examine the record of repa/r and re- placement actions of stop signs, gield signs, and warning signs to ensure a record is available for the future with respect to Citg liability. V. POLICE' AND' ENGINEERING COOPERATION The Engineering and Police cooperation and coordination in the City of Tustin was excellent. It was indeed a pleasure for the Engineering member of the Team to have been associated, though for a brief period, with the employees of the City of Tustin. 21 TO: FROM: SUBJECT: HCNORABLE MAYCR AND CITY CCUNCIL BILL MUSTCN, CITY MANAGER TRAFFIC SAF~I'Y EVALUATICN-ENFONCEMENT A~D E~GINEERING ANAnVSIS The attached report is informational omly and does not require any specific City Council action. DISCUSSICN: Earlier this year the City requested that the University of California Berkeley, Institute of Transportation Studies, comduct an evaluation of the City's traffic enforcement and engineering functions. The Institute is recognized as a leader in the field of traffic engineering and enforcement and co~ducts evaluations for cities in California at no cost. The attached report was prepared following a two day comprehensive review of the City's traffic engineering and traffic enforcement functions by two consultants fro~ the Institute. It is important to note that the overall conclusion of the evaluation is that the City's traffic engineering and enforcement functions are efficient and productive when measured against ~,,,~nly accepted traffic engineering and enforcement standards. The recon~nendations contained in the evaluation will be implemented by the Public Works and Police Departments.