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HomeMy WebLinkAbout8.2 Report on Red Light Camera Programs STAFF REPORT CITY COUNCIL Page 1 of 8 Agenda Item 8.2 DATE: September 2, 2025 TO: Honorable Mayor and City Councilmembers FROM: Colleen Tribby, City Manager SUBJECT: Report on Red Light Camera Programs Prepared by: Jordan Foss, Senior Management Analyst EXECUTIVE SUMMARY: The City Council will review a report on the feasibility of implementing a red light camera program as a tool to enhance public safety, including potential benefits and drawbacks of such a program. The report is the result of Staff’s review of programs in eight California cities and evaluation of whether similar needs exist locally. STAFF RECOMMENDATION: Receive the report and provide direction. FINANCIAL IMPACT: There is no financial impact associated with receiving the report. Analysis of specific fiscal impacts will be necessary if the City Council directs Staff to pursue a red light camera program. DESCRIPTION: Background On April 1, 2025, the City Council directed Staff to bring back a report on the feasibility of implementing a red light camera program as a tool to enhance public safety. As part of this effort, the City Council requested that the report also include an evaluation of the potential benefits and drawbacks of such a program. Red Light Cameras Red light cameras are traffic enforcement systems that use a combination of sensors and cameras to detect and record vehicles that enter an intersection after the traffic signal has turned red. There are three types of pole-mounted red light camera systems as identified in Table 1. 100 Page 2 of 8 Table 1: Pole Mounted Red Light Camera Systems Type Detection Method Inductive Loop-Based In-pavement sensors detect vehicles crossing stop line after red; camera mounted on nearby pole records violation. Radar-Based Radar unit mounted on traffic pole tracks vehicle approach and entry into intersection. Video/Computer Vision-Based Camera with built-in video analytics detects vehicles and violations directly from pole. Red light cameras are typically installed at signalized intersections with a documented history of red light violations or collisions. The technology is designed to monitor specific “approaches” to an intersection, meaning each direction of travel (northbound, southbound, eastbound, or westbound) that enters the intersection. For example, a four-way intersection may have up to four monitored approaches, but research shows that agencies often select only one or two approaches based on traffic volume, collision patterns, or community concerns. Each monitored approach is treated as a separate enforcement location. Red Light Camera – Efficacy Research indicates that red light camera enforcement is associated with meaningful reductions in fatal crashes and collisions in jurisdictions with identif ied problems. Nationwide studies show that after activation of camera programs, fatal crashes due to red-light violations dropped by approximately 21 percent, and all fatal crashes at signalized intersections declined by 14 percent, compared to what would have been expected without cameras1. According to the Insurance Institute for Highway Safety (IIHS), violation rates typically decline 30 -50% within the first year of implementation. Despite these safety benefits, certain studies have observed a rise in rear-end collisions. A Federal Highway Administration study (2005) found a 10-15% rise in rear-end collisions at camera-equipped intersections, likely due to abrupt stopping by drivers trying to avoi d citations2. These crashes tend to be less severe and point to the need for engineering strategies, such as appropriate yellow light intervals, to maximize overall safety. Red Light Camera – Citation Fines and Fees In California, citation fines are set by the California Vehicle Code (CVC) and fines are fixed; however, the State and counties assess additional fees. For example, the base citation fine for making an illegal right turn at a red light per the CVC is $35, and the base citation fine for going through a solid or flashing red light is $100. However, fees can range from $100-$500 depending on the jurisdiction and severity of the infraction. Table 2 below provides a citation cost breakdown, using Alameda County as an example. 1 Hu, Wen, and Jessica B. Cicchino. "Effects of Turning on and off Red Light Cameras on Fatal Crashes in Large U.S. Cities." Journal of Safety Research 61 (June 2017): 1-8. 2 Federal Highway Administration, Safety Evaluation of Red-Light Cameras – Executive Summary, FHWA-HRT-05-049 (Washington, DC: U.S. Department of Transportation, April 2005), https://www.fhwa.dot.gov/publications/research/safety/05049/. 101 Page 3 of 8 Table 2. Red Light Camera Citation Fines and Fees Component Right on Red Light Violation Red Light Violation Description Base Fine $35 $100 Set by California Vehicle Code. State Penalty Assessment Fees $60 $150 Includes fees for the State Trail Court Trust Fund, Automated Fingerprint System Fund, DNA Identification Fund, and State Court Facilities Construction Fund. County Penalty Assessment Fees $28 $70 Varies by county. Dispersed to the County General Fund. County Court Fund $20 $50 Varies by county. Supports County courthouse and jail construction. 20% Criminal Surcharge $7 $20 Applied to the base fine. EMS Assessment Fee $8 $20 Dispersed to Emergency Medical Services funds. Flat-Fee Additions $76 $76 Includes fees for County Court operations, criminal conviction assessment, and night court. Cumulative Effect $234 $486 Total citation greatly exceeds the base fine. Red Light Camera - Operation Red light camera programs are mostly operated through vendor contracts that include installation, maintenance, and back-office processing services. Attachment 1 shows a summary of the different vendors, average monthly cost per monitored approach, typical installation costs, different services provided, and other notes. In summary, Verra Mobility (aka Redflex) is the largest and most frequently used vendor in California, with Modaxo being the other large vendor in the state. Both vendors provide similar services, such as enforcement, monitoring, maintenance, and citation processing. City Findings Analysis of Comparable Cities Staff reviewed red light camera programs in various California jurisdictions to understand how they operate and identify the financial impacts. This research included cities that currently operate such programs, as well as those that have discontinued them. Data was collected from staff reports, vendor contracts, and publicly available sources, offering information on different program structures, operations, and effectiveness. These findings provide context for evaluating the feasibility and key considerations of implementing a red light camera program in Dublin. Attachment 2 includes a matrix summarizing the eight cities that were compared. The comparison shows that California cities have varied experiences with red light camera programs, with some (e.g., Fremont, Citrus Heights, and Napa) continuing operations under 102 Page 4 of 8 vendor contracts, while others (e.g., Los Angeles, El Cajon) discontinued due to concerns about effectiveness, safety, or costs. Contract structures and program outcomes differ widely, with annual costs ranging from around $375,000 to nearly $900,000. Program Costs and Revenues. Staff focused on cities located in the Bay Area to better understand cost structures in the local service area. In these cities, vendor contracts for red light enforcement generally range between $4,000 and $6,000 per monitored approach per month. These costs generally include equipment, installation, maintenance, and vendor review of violations, and are usually fixed under multi-year agreements. Vendor contracts, though, do not reflect the full cost of operating a program. Cities also allocate staff resources for administration and oversight, along with one-time startup expenses such as public outreach, signage, and intersection engineering adjustments. Based on comparable cities, sworn officers, non-sworn personnel, or community services officers are often assigned to citation review, court appearances, and program management, representing an average of 0.50 full-time equivalent (FTE), depending on citation volume and number of approaches in each jurisdiction. The estimated total citation (fine and fees) for a red light violation is $490. The issuing jurisdiction receives the base citation fine (either $35 or $100 depending on the type of violation) and the remaining fees are distributed to county and State funds. The funding received from these citations is used to offset program expenditures, however, it should be noted that revenue generation is dependent upon the number of citations, while the costs are generally fixed. Thus, sometimes the revenues fall short of full cost recovery because of the associated staff time involved, and sometimes agencies achieve full cost recovery and even generate additional revenues that can be used for other traffic safety improvements. City of Napa Example. To provide an example of total program costs, Staff analyzed the City of Napa’s red light camera program and used actual contract costs and estimated staffing and startup costs. The City of Napa operates automated red light cameras at four intersections, with a total of 16 monitored approaches. The cameras were installed as a result of data from the California Office of Traffic Safety (OTS) showing that Napa ranked 9th highest (in 2020) out of 105 comparable jurisdictions in total fatal and injury crashes, with 90 percent of collisions taking place at intersections. Using the Napa example, the following cost projections illustrate the estimated cost of operating a red light camera program in 2025.  Startup Costs – Prior to the launch of their current program in December 2024, Napa conducted community outreach, built a program website, and undertook engineering services on existing traffic signals, such as signal timing, signage installation, and review of traffic signal structure integrity. Startup costs are estimated at up to $75,000 per intersection. The cost is estimated based on projections for equipment, installation, integration, staff time, and setup fees. The total estimated startup cost for the four monitored intersections in Napa is up to $300,000.  Ongoing Costs – The City of Napa has ongoing costs associated with their program that are estimated to be more than $1 million annually as shown in Table 3. 103 Page 5 of 8 Contracted services costs are fixed, regardless of the number of citations issued. Table 3: City of Napa Annual Ongoing Costs Ongoing Cost Type Annual Amount Contract with Modaxo (4 intersections/16 approaches) $882,240 Police Department Staffing  Community Services Officer (1 FTE)  Patrol Officer (0.25 FTE) ~$160,000 Total Estimated Annual Cost $1,042,240  Citation Fines and Fees – In the City of Napa, citations are $445 for running a red light or turning left on a red arrow, $217 for failing to stop for a red light then turning right, and $363 for turning right on a red light where there is a no right on red sign posted. As the program was just initiated in December 2024, revenue data from citations is not currently available. However, a 2023 Staff Report indicated that Napa staff estimated full cost recovery as well as the generation of additional revenue to be available for traffic safety programs and traffic enforcement equipment related to reducing collisions. Benefits and Drawbacks Potential Benefits. Red light camera programs have been linked to measurable safety and operational improvements, including:  Violation and Collision Reductions o Traffic violations and fatalities may see a decrease in communities with identified problems.  Continuous Enforcement o Cameras operate 24/7, supplementing rather than replacing sworn officer presence.  Objective Evidence o Systems capture photographic and video records that support citation review and court hearings. Potential Disadvantages. Red light camera programs present several challenges, including:  Increased Rear-End Collisions o Studies show that red light cameras can be associated with an increase in rear-end collisions due to sudden braking to avoid a fine.  Public Perception Concerns o According to a 2012 IIHS study3, some community members may question the fairness of automated enforcement or perceive it primarily as a revenue-generating tool.  Variable Financial Performance o Citation revenue is often higher during early implementation but may decline as compliance improves, creating inconsistencies in program 3 Anne T. McCartt and Angela H. Eichelberger, “Attitudes toward Red Light Camera Enforcement in Cities with Camera Programs,” Traffic Injury Prevention, January 2012, Insurance Institute for Highway Safety, accessed August 25, 2025, https://www.iihs.org/research- areas/bibliography/ref/1886. 104 Page 6 of 8 funding over time.  Operational and Administrative Demands o Programs require ongoing oversight by law enforcement personnel for citation review, processing, and court appearances, contributing to annual expenditures that must be sustained. Needs Assessment In assessing whether there is a need for red light cameras in Dublin, Staff looked at Dublin’s OTS ranking among similar jurisdictions, actual collision data, and the City’s Local Roadway Safety Plan. OTS Ranking and Data. In 2022, Dublin ranked 85th highest out of 104 comparable jurisdictions in total fatal and injury crashes according to OTS, with 82 percent of collisions taking place at intersections (signalized and non-signalized) over a five-year period. Dublin Police Services looked at overall crash data for select signalized intersections along Dublin Boulevard between July 1, 2020 and July 1, 2025 , and identified the number that were specifically related to red light violations. The results, shown in Table 4, indicate that these types of collisions are relatively infrequent. In addition, it is also important to note that, over the past five years, there have not been any fatal crashes in Dublin that were attributed to red light violations. Table 4: Crash Data from Red Light Violations at Select Intersections, July 1, 2020 – July 1, 2025 Major Intersection Number of Collisions Average # of Collisions Per Year Dougherty Road at Dublin Boulevard 9 1.8 Hacienda Drive at Dublin Boulevard 6 1.2 Fallon Road at Dublin Boulevard 0 0 San Ramon Road at Dublin Boulevard 10 2 Tassajara Road at Dublin Boulevard 7 1.4 Village Parkway at Dublin Boulevard 15 3 Total 47 9.4 For additional reference, Table 5 provides a comparison of intersection-related collisions (signalized and unsignalized) for a few Alameda County cities, as reported in the Transportation Injury Mapping System data from UC Berkeley for the most recent five-year period (2020 to 2024). These do not specify whether the collisions involved a red light violation, but the data provides more context for the discussion. Of the total number of collisions at intersections in Dublin, under half resulted in a broadside accident (which might typically occur if speeding through a red light or a stop sign). 105 Page 7 of 8 Table 5: Collisions at Intersections, 2020-2024 Total Intersection Collisions Broadside Accidents Percent Broadside Dublin 237 108 46% San Leandro* 607 271 45% Pleasanton 360 218 61% Livermore 415 272 66% Fremont* 972 560 58% * Currently has a red light camera program. Local Roadway Safety Plan (LRSP). An LRSP uses historical collision data and an understanding of local context to assess existing roadway safety conditions, identify areas for improvement, and provide recommended actions with an implementation plan. Essentially, an LRSP creates a data-driven decision-making framework to reduce the number of fatal and severe injury collisions on local roadways. The recommendations included in the plan are both site-specific as well as systemic safety improvements that can be applied agencywide. Dublin’s LRSP, adopted by the City Council in January 2023, identified five emphasis areas that deserve special focus and priority and help guide the LRSP’s recommended actions and implementation strategies. Emphasis areas represent crash factors whose reduction would have the greatest overall effect on traffic safety. In Dublin’s LRSP, the emphasis areas are pedestrian collisions, nighttime safety, aging drivers (65 and older), signalized arterial/local intersections, and aggressive and impaired driving. The LRSP collision analysis indicates that intersections, particularly signalized ones, account for a larger share of crashes in Dublin compared to roadway segment collisions. Rear-end and broadside crashes are the most frequent, with contributing factors such as unsafe speed, failure to yield, and traffic signal or sign-related violations. Based on the analysis of the type and frequency of intersection collisions (not just for red light violations), Dublin’s LRSP does not identify automated enforcement (i.e., red light cameras) as a recommended strategy. Instead, it emphasizes engineering and signal timing improvements, such as leading pedestrian intervals, bicycle and pedestrian safety improvements, and visibility enhancements, to address the prevailing collision patterns. Conclusion In looking at the data, Staff does not believe that red light cameras are currently warranted, however, there are measures identified in the Local Roadway Safety Plan that deserve a focus, particularly in priority locations such as the signalized intersection along the Village Parkway corridor. The next LRSP will be completed in 2028, with new data , focus areas, and implementation strategies. In addition, Staff will continue to monitor existing conditions and use the Traffic Safety Committee, comprising representatives from Dublin Police Services’ traffic unit, Public Works’ transportation staff, and City maintenance staff, to discuss and resolve potential traffic safety issues around the City. 106 Page 8 of 8 STRATEGIC PLAN INITIATIVE: None. NOTICING REQUIREMENTS/PUBLIC OUTREACH: The City Council Agenda was posted. ATTACHMENTS: 1) Red Light Camera Vendor Matrix 2) California Cities Comparison Matrix 107 Vendor Average Monthly Cost per Approach (CA or U.S. contracts) Typical Install / Mobilization Costs (per intersection)Services Provided Important Notes Verra Mobility (ATS / Redflex) $3,000 – $6,000 (Encinitas: $3,000; Fremont: $4,000; Daly City historical: $6,000; SF not disclosed but benchmarked in range) ~$67,000 – $80,000 Full turnkey: camera install/O&M; evidence review; citation processing; mailing & payment; court/adjudication support; analytics Largest CA operator. Long-running contracts (Fremont since 2000). San Francisco contract extended to 2028. CPI escalators and outage proration used. Modaxo (formerly Xerox/ACS/Conduent) ~$3,700 per camera/month (older Beverly Hills contract; current terms not published) ~$67,000 – $80,000 Red-light enforcement; back-office citation processing; payments; data hosting; analytics Current vendor in Beverly Hills and Napa. Fixed monthly fee structure (no per-ticket pay). Legacy provider transitioned from ACS → Xerox → Conduent → Modaxo Sensys Gatso USA $1,500 – $3,000 per location/month (based on Ohio/Iowa/Illinois contracts; no active CA contracts found) ~$67,000 – $80,000 Turnkey TRaaS (“Traffic Enforcement as a Service”): red-light & speed enforcement; O&M; citation processing; payment portal; program analytics Not currently active in CA. Active in Midwest/East Coast. Known for bundled speed + Red Light programs. RedSpeed USA $3,300 – $3,500 per camera/month (historical Albany, NY bid); purchase + maintenance option (~$57k upfront + ~$2k/mo) ~$60,000 – $80,000 Turnkey red-light & speed enforcement; hardware; O&M; citation & payment services Focused in Illinois; no active CA contracts found. Some proposals offer “cost-neutral” (fee from fines) models. NovoaGlobal ~$5,700 per system/month (Everett, WA portable system contract); no CA contracts found ~$65,000 – $80,000 Red-light, speed, and school-zone enforcement; citation processing; court support; analytics Active in Tennessee, Washington, and Midwest; no verifiable CA contracts. Jenoptik (hardware OEM, TraffiStar series) Varies — typically hardware purchase + integrator O&M (not published per approach) ~$70,000+ if bundled with integrator install Supplies hardware (TraffiStar SR systems for RL + speed); ANPR options; housings Primarily a hardware provider. Turnkey services delivered through partners/integrators. Not documented as direct CA operator. Red Light Camera Vendors Attachment 1 108 City Population (2024)Size Program Period Cameras Operated Camera Vendor Contract Cost per Approach Appx. Annual Contract Cost Notes Bakersfield 417,468 151 sq. mi. 2003 - present 10 intersections; approaches unknown Redflex Traffic Systems $3,133 per intersection, not per approach $375,960 According to report, only 54% of citations issued were paid. Citrus Heights 86,909 14.2 sq. mi 2018 - present 10 cameras Redflex Traffic Systems $4,100/month $492,000 City operates a cost-neutral contract with vendor, but that does not account for City overhead costs. Daly City 101,418 7.7 sq. mi.2008 - present 4 intersections; approaches unknown Redflex Traffic Systems $6,000/month Unknown approaches No adequate data available on program and efficiency. El Cajon 103,291 14.4 sq. mi.1996 - 2013 Unknown American Traffic Solutions (ATS)N/A N/A Discontinued by City Council vote due to concerns of safety benefits, revenue distribution, and no significant reduction in collisions. Fremont 228,192 77.5 sq. mi.2000 - present 12 intersections; 12 approaches Redflex Traffic Systems $4,000/month (approximately)$576,000 Vast majority of citations are for illegal right hand turns. Los Angeles 3,878,704 468.7 sq. mi.2001 - 2022 240 intersections; 404 approaches Private Vendor N/A N/A Discontinued by City Council vote due to lack of efficiency, no significant reduction in collisions, difficulties with enforcement. Napa 76,921 18.21 sq. mi.2024 - present 4 intersections; 16 approaches Modaxo N/A $882,240 Operated from 2011 – 2017 then discontinued due to false citations and lawsuit. Implemented again in 2024 at community request and executed a 5- year contract with Modaxo. San Leandro 86,571 13.3 sq. mi.2008 - present 4 intersections; 14 approaches Redflex Traffic Systems $5,200/month $873,600 Program shows fiscal vulnerabilities as it operates on a slight loss. California Cities Comparison Matrix Attachment 2 109 Red Light Camera Programs September 2, 2025 110 Background April 1, 2025 – City Council direction Staff conducted research and analysis 111 Red Light Cameras •What are they? •Types of pole-mounted camera systems: •Inductive Loop-Based •Radar-Based •Video/Computer Vision- Based Inductive Loop System 112 Efficacy •Reductions in fatal crashes and collisions. •Behavioral changes within the first year of implementation. •Increase in rear-end collisions. 113 Operation •Mostly operated through vendor contracts. Includes: •Installation •Maintenance •Monitoring •Administrative processing •Cost varies on number of monitored approaches and services provided. 114 Citation and Fines •Fines are set by the California Vehicle Code (CVC) and are fixed. •$35 for making an illegal right turn at a red light. •$100 for going through a solid or flashing red light. •State and Counties assess additional fees, which can fluctuate. 115 Alameda County Example Description Red Light Violation Right on Red Light ViolationComponent Set by California Vehicle Code.$100$35Base Fine Includes fees for the State Trail Court Trust Fund, Automated Fingerprint System Fund, DNA Identification Fund, and State Court Facilities Construction Fund. $150$60State Penalty Assessment Fees Varies by county. Dispersed to the County General Fund.$70$28County Penalty Assessment Fees Varies by county. Supports County courthouse and jail construction. $50$20County Court Fund Applied to the base fine.$20$720% Criminal Surcharge Dispersed to Emergency Medical Services funds. $20$8EMS Assessment Fee Includes fees for County Court operations, criminal conviction assessment, and night court. $76$76Flat-Fee Additions Total citation greatly exceeds the base fine.$486$234Cumulative Effect 116 Comparable Cities •Staff researched eight California jurisdictions: •Bakersfield •Citrus Heights •Daly City •El Cajon •Fremont •Los Angeles •Napa •San Leandro 117 Comparable Cities, 2 Program Revenues •Estimated total citation for violation is $490. •Issuing jurisdiction receives the base fine ($35 or $100) •Revenue received is used to offset program expenses. •Dependent on number of citations. Program Expenses •Vendor contracts between $4,000 to $6,000 per approach. •Staff Resources: •Administration and Oversight •Public Outreach and Signage •Intersection Engineering •Police Services: •Citation Review •Court appearances •Program Management 118 Comparable Cities, 3 City of Napa Example •9th / 105 comparable cities in fatal and injury crashes. •4 intersections; 16 approaches •Startup Costs (estimates) •Up to $300,000 in total •Ongoing Costs •Estimated Annual Cost - $1.04m •Citation Fines and Fees •Revenue data not currently available •Estimated at full cost recovery 119 Benefits and Disadvantages Potential Benefits •Violation and Collision Reductions •Continuous Enforcement •Objective Evidence Potential Disadvantages •Increased Rear-End Collisions •Public Perception Concerns •Variable Financial Performance •Operational and Administrative Demands 120 Needs Assessment •Office of Traffic Safety Ranking •85th / 104 comparable jurisdictions. •82% of accidents occurred at intersections over a five-year period. •Dublin Police Services Data •Collisions associated to red light violations are relatively infrequent. •No fatal accidents in Dublin attributed to red light violations over past five years. 121 Needs Assessment, 2 Crash Data from Red Light Violations at Select Intersections, July 1, 2020 – July 1, 2025 Average # of Collisions Per Year Number of CollisionsMajor Intersection 1.89Dougherty Road at Dublin Boulevard 1.26Hacienda Drive at Dublin Boulevard 00Fallon Road at Dublin Boulevard 210San Ramon Road at Dublin Boulevard 1.47Tassajara Road at Dublin Boulevard 315Village Parkway at Dublin Boulevard 9.447Total 122 Needs Assessment, 3 Intersection-Related Collision Data in Alameda County (2020-2024) Percent Broadside Broadside Accidents Total Intersection Collisions 46%108237Dublin 45%271607San Leandro* 61%218360Pleasanton 66%272415Livermore 58%560972Fremont* *Currently has a red light program. 123 Needs Assessment, 4 Local Roadway Safety Plan (LRSP) •Adopted by City Council in January 2023. •Five Emphasis Areas for Special Focus and Priority: •Pedestrian Collisions •Nighttime Safety •Aging Drivers (65 and older) •Signalized arterial/local intersections •Aggressive and Impaired Driving •LRSP does not identify automated enforcement as a recommended strategy. •Emphasizes engineering and signal timing improvements. 124 Conclusion •Through data analysis, red light cameras currently not warranted. •Local Roadway Safety Plan identified safety measures at priority intersections. •Next LRSP to be completed in 2028. •Traffic Safety Committee •Continue to monitor existing conditions. 125