Enforcement Planning Guide for Road Police, Decision Makers and Enforcement Bodies in Low to Middle- Income Countries

Transcription

1 Enforcement Planning Guide for Road Police, Decision Makers and Enforcement Bodies in Low to Middle- Income Countries

2 The imperative of enforcement planning complemented by standard operation procedures Effective planning is the most critical component of road policing. Failing to plan is planning to fail 1. Good practice in road policing strengthens the phrase - Plan to succeed strategically, operationally and tactically. This manual is a road policing tool-kit using a six step process designed for the traffic police using local knowledge, experience and up-to-date data. The aim is to use the evidence available to develop and improve police law enforcement performance, activities and current practices. Simple, useful and practical measures are provided as pathways towards improvement. The outcomes of this planning will enable: evidence-based enforcement and targeted enforcement operations to reduce road trauma; understanding of the need for a road policing strategic plan supported by Standard Operating Procedures as a foundation for enforcement operations; need for highly visible, effective, efficient, regular and safe enforcement operations; monitoring of traffic police performance before and after enforcement and over time; an assessment of enforcement capability and the quality of road policing, education and awareness activities. 1 Attributed to Benjamin Franklin, leading American author, printer and political theorist of the 18 th Century. 1

3 Where to start? Six-steps guide to achieve set objectives Step 1. Determine the vision and the strategic aim to achieve set objectives Step 2. Identify the strategy basis and develop road policing stategic plan Step 3. Establish good practice, evidence-based enforcement and targeted enforcement operations Step 4. Develop standard operating procedures for all police enforcement operations. Step 5. Ensure road policing operations are planned, effective, efficient and safe. Step 6. Monitor and evaluate the success of the enforcement operations Figure 1. Enforcement Planning Operation, Vietnam 2

4 Table of Contents The imperative of enforcement planning complemented by standard operation procedures... 1 Where to start? Six-steps guide to achieve set objectives Determine a vision and strategic aim to achieve set objectives Define the organizational road policing role Align with international good practice in road safety Vision Zero Safe Systems Approach The Decade of Action Alignment with the in-country road safety strategy Establish a vision and strategic objectives as a foundation to the enforcement plan Determine a vision Set strategic aim and objectives Identify the strategy and develop a road policing strategic plan Undertake a situational assessment of the impact of road trauma Undertake a SWOT Analyses- Strengths, Weaknesses, Opportunities and Threats List barriers and control measures to effective enforcement Develop a strategic plan- Focus on the Fatal-Five Structure the plan Good practice evidence-based enforcement and targeted enforcement operations Initial strategies what should they be? Ensuring compliance through enforcement Strategic enforcement Target enforcement operations Tasking to achieve positive outcomes Develop standard operating procedures for all police enforcement operations Introduction Purpose of SOP s Good practice methodology for developing guidelines The identification of problems and how to deal with these issues What should be included in the SOP s? Ensure that the road policing operations are planned, effective, efficient and safe Introduction Checkpoint objectives

5 5.3 Site location and safety Site safety plan Operational planning to prevent escape of suspects Safety officer Signage at the checkpoint Vehicles of detained persons Efficiency in processing subjects Monitoring and evaluating the success of enforcement operations Introduction The key points to identify are: Performance indicators summary points Summary Further Reading Good practice manuals Glossary Links to sample Road Policing Strategic Plans Appendix A - Checkpoint Operation Checklist

6 1 Determine a vision and strategic aim to achieve set objectives 5

7 1. Determine a vision and strategic aim to achieve set objectives Define organisational role Aligh with internationa good practice Indentify if jurisdiction has a road safety strategy Establish a vision and objectives as a foundation to the enforcement plan 1.1. Define the organizational road policing role In establishing a vision, there must be a clarity of the road policing role of the organization. Is it part of a broader role of law enforcement or is it solely road policing? i.e. what is the reason for the existence of the organization? Does it encompass the broader policing role? This may include: Preserving the peace Protecting life and property Preventing offences Detecting and apprehending offenders Helping those in need of assistance Or solely a road policing focus which may include: Traffic management Traffic flow Traffic law enforcement Education, awareness and ensuring the road safety discipline of road users Licensing and registration VIP Escorts Public order There must be a clear understanding from government, government agencies, the community and the police themselves about the actual role and responsibility. This should be determined in the legislation, regulation or policy and must be a document which can be referenced Align with international good practice in road safety The concepts outlined in road safety reform programmes over the past two decades such as Sweden s Vision Zero, the OECD s Safe Systems approach and the United Nations Decade of Action provide foundation models which can be embraced to ensure that the law enforcement model is holistic in its approach and systematic in its application. 6

8 Vision Zero A leading case study for good practice for road safety is Sweden, with one of the lowest number of road crashes in relation to its population. Sweden s long-term road safety goal of zero fatalities and serious injuries by 2020 is commonly referred to as Vision Zero. This visionary target is based on a refusal to accept the inevitability of human death or lifelong suffering as a result of road traffic crashes. 2 Sweden s systematic approach to road safety acknowledges that crashes are still likely to happen, however, there is a need to continually focus on prevention, especially understanding crash risks and crash causes through effective crash investigation. The approach emphasises the need to acknowledge the role speed plays in crashes, to engage in legislative reforms, to provide a focus on vehicle safety and to provide more effective road infrastructure management. The vision requires guaranteed seat-belt use, sober drivers and speed limitations, and emphasises the role of the traffic police as a key component to achieve the outcomes. 3 These ideals are not easily achieved because of inconsiderate road user attitudes and behaviours. This highlights the need for an effective law enforcement to support this vision. Although the emphasis is on protecting drivers from their own failings, infrastructure and system reviews and improvements, the vision does not tolerate the violation of road regulations and suggests police interventions., breath-testing ignition interlock devices, automated speed and red light enforcement as well as mobile traffic law enforcement. The enforcement role is necessary where there are deliberate driver actions such as drink/drunk driving, speeding, overloading, dangerous and reckless driving over which enforcement and the legal process must take precedence. This philosophical approach, of zero deaths has merit however, how this is to be achieved is a matter of integrated counter-measures in the local jurisdiction including strong education campaigns and dynamic and effective law enforcement Safe Systems Approach A development from Vision Zero is the Safe Systems approach. 4 This road safety philosophy was recommended by the World Report for adoption internationally from The research report culminated from a three-year cooperative effort by international road safety experts representing 21 countries as well as the World Bank, the WHO and the Federation Internationale de L Automobile Foundation, 6 a UK registered charity supporting international road safety programmes. The report recommends that all countries adopt an aspirational vision to achieve challenging road safety reductions and regardless of their level of road safety performance, move to the Safe Systems 2 Claes Tingvall and Narelle Haworth, Vision Zero; an ethical approach to safety and mobility, The 6 th Institute of Transport Engineers International Conference on Road Safety and Traffic Enforcement; Beyond 2000, Melbourne, 6-7 September, (retrieved on 12/12/2012, 20 September 2013). 3 Tingvall, Vision Zero. 4 OECD, International Transport Forum, Towards Zero, Ambitious road safety targets and the Safe Systems Approach (Paris: OECD Publications, 2008). 5 Peden, World Report on Road Traffic Injury Prevention 6 Federation Internationale de L Automobile Foundation, (accessed 19th September 2013) 7

9 approach to road safety. To achieve this, countries will require interventions that are some steps removed from prevailing best practice. The logic is that agencies within a country should adopt a safety-oriented and holistic approach to projects and programs to achieve road safety outcomes. A practical example is the Western Australian road safety strategy, which promotes a Safe System matrix with four cornerstones of safety: safer vehicles, safer roads, safer speeds and safer road users. 7 This holistic, integrated and collaborative approach continues to be accepted internationally as a foundation for achieving road trauma reductions. The Safe Systems approach has been described as the new performance frontier for road safety management because it builds on existing road safety interventions and reframes the way in which road safety is viewed and managed in the community. 8 Figure 2. The Safe Systems Approach In complying with the Safe Systems approach, enforcement organisations are encouraged to consider the educational and public awareness components of road safety preventative measures as well as to thoroughly investigate crashes for primary and secondary causes including road and vehicle faults. A safe systems approach must be complemented by a safe thinking approach especially by road users. 7 Western Australia Road Safety Council, Office of Road Safety, Towards zero, road safety strategy , (retrieved 2 nd February, 20 September 2013). 8 Jeanne Breen, Safe System the new performance frontier for road safety management. (Conference presentation, Perth: Western Australia Road Safety Awards, WA Gov Office of Road Safety, November 6 th 2008), (accessed 19th September 2013) 8

10 1.2.3 The Decade of Action On 11 th May 2011, the United Nations Global Plan for the Decade of Action for Road Safety was launched in 110 Countries and identifies five pillars to link road safety actions. 9 The pillars provide the incentive and foundation for road safety reform and to be based on strong partnerships: 1. Road Safety Management 2. Safer Roads and Mobility 3. Safer Vehicles 4. Safer Road Users 5. Post-Crash Response 2. Safer Roads and Mobility 1. Road Safety Management 3. Safer Vehicles Partnership 5. Post - Crash Response 4. Safer Road Users Education Figure 3. The five pillars of the Decade of Action Within the proclamation, road policing is identified as integral to road safety. This includes strengthening of enforcement of existing road safety legislation on the key traffic injury risk factors including using seat belts and helmets, drink-driving and speeding. 10 A number of international declarations and resolutions were then converted to a definitive action plan. This plan had a specific objective to stabilise and then reduce the number of road fatalities and injuries by 50% world-wide by The application of traffic law enforcement to achieve the objectives of pillar number four - safer road users - through education and compliance, is of particular relevance. The plan includes setting and enforcing laws requiring the use of seat belts, helmets and child restraints; setting and enforcing blood 9 WHO, Global Plan for the Decade of Action for Road Safety , (retrieved June 2011, 20 September 2013). 10 Ibid, 5 9

11 alcohol concentration limits for drivers, supporting the enforcement of legislative measures and increasing awareness of risks and penalties associated with breaking the law. This global action provides impetus to countries to identify the most productive ways to assist law enforcement progress. 1.3 Alignment with the in-country road safety strategy It is imperative to understand that a national road safety strategy is not a road policing strategy. A national road strategy will include all aspects of road safety such as infrastructure, roads, vehicles, enforcement, education and emergency response. If a national strategy exists, it should include enforcement as a major contribution to the countermeasures, however, there will be little guidance as to how, when, where and why to enforce or how to undertake road policing activities. The road policing strategy should be respected as an over-arching document with the enforcement strategy and a plan supporting its underlying principles. 1.4 Establish a vision and strategic objectives as a foundation to the enforcement plan Determine a vision Vision is a short, carefully constructed statement (Vision Statement) which advises the community, government and all agencies what is planned to achieve in the road policing. What is the ultimate objective? What is the time-frame and the organizational aspiration? If the vision statement is already set, it may be time to critically review to understand if it is realistic and relevant. It is important to check out vision statements from other organisations as well as vision statements from other national or international road policing agencies or road safety agencies. How long, short or precise are they? How do they convey the essence of what that agency is about? It will be good to construct a range of possible vision statements and merge them into one that briefly describes your organisation. NB: Some organisations have both a vision statement and a mission statement, while others will only have one. The important issue is to understand the role of your organization, focus and the desired outcomes. 10

12 Some examples of Vision Statements: To be the most effective Police Road Safety Network in the World TISPOL European Traffic Police Network. Tispol Strategic Plan Making our roads the world s safest NSW, Australia 2010 To provide the highest level of safety, service and security to the people of California California Highway Patrol Figure 4. Victoria Police - Road Safer Communities together New Zealand Road Policing to Zero The Road Policing Command will provide a coordinate and proactive approach to road policing throughout Queensland to achieve the Commissioner s Vision to stop crime and make the community safer including stopping road trauma and will continue to build strong relationships across the community to support its work. Queensland Police Service Road Policing Command. NB: Vision or Mission Statement should stress safety on the roads and motivate trauma reduction. There is strength in a bold statement complemented by ambitious objectives. This impact must be dramatic and the strategies dynamic so that positive outcomes can be achieved. Your vision must be shared with your stakeholders including the community and understood by all. It should not be just a statement, rather a focus for everyone Set strategic aim and objectives Each strategy will have specific objectives, however over-arching strategic aim will be to commit to a strategic aim such as: Vision Strategy To reduce the incidence, severity and cost to the community of road trauma Figure 5. Strategic Aim 11

13 Road trauma has been identified as an international crisis that requires coordinated commitment from all stakeholders under the Decade of Action of the United Nations. Within the structure of the five pillars of action, road policing is acknowledged to have a key role in improving the behaviour of road users through the enforcement of traffic laws for the key risk factors. Concentrate on developing strategies for road policing, education and enforcement to achieve road user compliance in road safety 12

14 2 Identify the basis for the strategy and develop a road policing strategic plan 13

15 2. Identify the strategy and develop a road policing strategic plan Undertake a situational assessment Undertake a SWOT analysis Determine your barriers and controls Form your strategic plan This process supports the transparency and accountability so it is clear how and why education and enforcement actions are taken to achieve the outcomes. The final key is to monitor the strategies and actions in order to measure their effectiveness. This enables to make modifications to the programme if it is not achieving the desired results. The whole process is to focus on the outcomes rather than the outputs normally delivered. Outcomes = increase helmet wearing, increase seat-belt wearing, reducing speed Preventing crashes, saving lives & reducing injuries. Outputs = increase tickets, increase fines, number of patrol hours and number of interceptions The development of the strategic plan is best undertaken using the knowledge and skills of senior and experienced officers, supported by operational road police and with contribution from stakeholders and partners. Workshop is an effective way to involve all parties and achieve a commitment required for success. In some circumstances, there is value in employing a facilitator to assist in stimulating discussion, engaging all parties and ensuring discipline in the discussion and fact-finding process. 2.1 Undertake a situational assessment of the impact of road trauma It is essential to accurately and honestly assess the impact of road trauma and understand the true magnitude. If official statistics are unavailable, the estimates may be used as a guide. 1. What is the number of drivers, riders, passengers and pedestrians killed and injured each year? 2. What are the major causes of crashes and injuries? 14

16 Use the following table to record key information: Essential data Actual or estimated (current year) Trend? Increase Decrease Stable % Change? (from last year) Country Population latest year available Road related fatalities 11 latest year - ALL % change Road related injuries ALL % change Road related crashes - ALL % change *although exact numbers may not be known, it is important to have some conceptual reference to the extent of the problem. This forms an evidence base for your actions. Table 1, Template for Country Trauma Statistics This information provides the basic evidence for why education and enforcement programmes are needed as an intervention strategy. All road policing officers should be aware of these statistics and undertake their enforcement operations with the aim of increasing road safety and road discipline for the purpose of preventing road crashes and saving lives. Road user involved in crashes Vehicle drivers Vehicle passengers Motorcycle riders Motorcycle passengers Pedestrians Table 2. Template for road users involved in crashes Killed Injured Trend? Increase, Decrease Stable % Change? (from last year) % change % change % change % change % change Primary Crash causes - Current year Killed Injured % Speeding or speed related Dangerous driving or riding Driver impaired (alcohol, drugs) Driver impaired (Fatigue) Driver distraction (e.g. mobile phone) Overloading Other (list and obtain values for others if extensive) Contributing cause of death or injury Driver or passenger no seat belt worn Motorcycle Rider or passenger no helmet Table 3. Template - Primary Crash Causes, Non-use of seat belts and helmets This baseline information is essential so that the implementation of the enforcement strategy can be measured. The is the ideal situation for the data collection processes to be effective and efficient. This means accurate assessment from the crash investigator and accurate recording of the key and critical categories on the investigation report. As your investigation and data collection methods become more sophisticated, you can include primary, secondary and tertiary crash causes, vehicle and road 11 WHO, Global Report on Road Safety, Geneva, 2013, 8. Explanation: A road traffic fatality should be defined as any person killed immediately or dying within 30 days as a result of a road traffic accident. The choice of 30 days is based on research that shows that most people who die as a result of a crash succumb to their injuries within 30 days of sustaining them, and while extension of this 30-day period results in a marginal increase in numbers, it requires disproportionately large increases in surveillance efforts. 92 countries (51%) now use this 30-day fatality definition. Note: If your country uses a different definition such as 7 days, this information should be identified 15

17 conditions (such as crash causes), as well as using research/surveys from credible organizations universities, institutes or road safety bodies. 2.2 Undertake a SWOT Analyses- Strengths, Weaknesses, Opportunities and Threats This is a simple approach which identifies the agency s capability of implementing the enforcement strategies. It determines the ability to provide effective, efficient and safe enforcement, targeted to reduce road trauma. SWOT analysis is a brainstorming planning process that identifies positive and negative aspects of the enforcement capabilities and then form the basis of the strategy this is a practical technique to identify the agency s Strengths, Weaknesses, Threats and Opportunities (SWOT). Good practice policing bodies use this method to develop their strategic plans and to assist them in providing interventions and countermeasures in road policing reform. STRENGTHS list and build upon those characteristics which are credible, powerful and are an advantage to the police operations WEAKNESSES list and understand those characteristics which create a disadvantage or distraction to the effectiveness and efficiency of the operations OPPORTUNITIES list and discover those elements which have potential value and can be exploited. This includes the United Nations collaborative endeavor of the Decade of Action, Global Road Safety Week and World Road Safety Remembrance Days. It is appropriate to build sustainable capacity with identified and achievable goals, and to broaden the partnership base to approach road safety with shared responsibility and accountability. THREATS list and manage those elements which pose a problem and need to be controlled or eliminated Strengths and weaknesses are the identified characteristics within the organization and are manageable. Opportunities and threats are usually external. If the weaknesses are acknowledged and you re the threats are understood, the progress can be made towards good practice and continuous improvement. As a guide, ask questions for each category and record the critical issues. Strengths: Internal perspective: What do you do well? What are the key successes? What are the key efficiencies? What is done effectively? What are the main achievements? Are the officers committed to achieving results? Does the community support the road policing actions? What are the factors used for evaluating the results? Remember to look at your strengths from both the perspective of your organization and that of other agencies and the community how do other agencies view the strengths that are identified. Does the community see these characteristics as strengths? Weaknesses: Internal perspective: What can be improved? What factors limit the success? Have some of the programmes failed? Why? What is missing? Are the officers well-trained? Are the data collection and analysis sources reliable? What are the staffing levels? Are there sufficient resources? What is the communication strategy with the community What is the 16

18 External focus Internal focus communication strategy with the government Remember to look at the weaknesses from both the perspective of your organization and that of other agencies and the community how do other agencies view the identified weaknesses? Would they raise other issues as weaknesses? Opportunities: What are the opportunities? What are the trends, initiatives in government agencies? What is the technology to improve the organizational performance? Are there any sponsorships, grants or external funding to assist law enforcement? Can new professional skills and training programmes be organized? Is there the ability to change government policy to assist the organization? Are there social patterns, population profiles, lifestyle changes that may assist the strategic direction? Are there new partnerships to develop or strengthen? Is the community involved in road safety programmes? Linkages to other police organizations)? How is it possible to gain more resources or different resources (police reserves, police volunteer program)? Can any of the identified strengths be converted to opportunities or your weaknesses be eliminated to create opportunities? Threats: What are barriers to effective enforcement? Is the change in technology, pace of technology or lack of technology a threat to organizational development? Is road trauma rising and causing embarrassment to the enforcement activities (or lack of enforcement activities)? Are there government regulations directly impacting on how the organization can perform? After undertaking a SWOT analysis, objectives can be set and policy developed based on the best possible information and evidence. It is important to recognize the inter-relationships of the characteristics listed. For example: (a) a strength can be converted into an opportunity; (b) declaring a weakness can assist its conversion to a strength; (3) threats or potential threats can assist to convert those negatives into an opportunity. A SWOT analysis is just the start of the process; it basically results in lists for each category within the analysis. These characteristics then need to be pruned considerably, prioritized and converted to plans, actions and strategies. Both internal and external environments need to be assessed as a context for this planning. SWOT analysis template Beneficial Detrimental Table 4. An example of a SWOT Analysis Template 17

19 2.3 List barriers and control measures to effective enforcement Challenges for enforcement strategies: The most common barriers identified internationally are funding restrictions, resourcing implications and legislative impediments. While each is a challenge in its own, the determination to move forward is paramount. Some barriers may be national, organizational, multi-sectorial or community based. Each must be considered on its merits, for its potential impact on progress and the avenues that may be implemented to overcome the barrier. Internationally identified operational barriers: Drivers, riders, passengers and even police officers, not understanding the safety factors of road safety; lack of motivation by police to enforce the strategy; police not providing consistent enforcement; political interventions to prevent checkpoints; offenders observing and avoiding the checkpoint; offenders failing to stop at the checkpoint; offenders claiming VIP exemption; legislative fines too low to ensure compliance or change road users behaviours. Identify the situation: The following table will assist in the identification of the challenges and then focus attention on the actions required to remove or minimize the impact of those barriers, and move forward taking advantage of the opportunities. Barriers and challenges will be specific to countries, depending on their socio-economic development, cultural and religious issues, road safety legislation, core traffic police responsibilities, current road trauma, government commitment to road safety (political will), community attitudes and driver behaviours. What is the Challenge? What is the Control Measure? Table 5. Template for identifying your barriers and control measures The next step is to convert the control measures into actions - specify what can be addressed over the next twelve months. Challenge No. 1 18

20 Time line for action: (to be completed by / / date) Who will take responsibility to address this challenge? What steps are required to commence and progress this specific action? (a) (b) (c) For Challenge No. 2, and 3, 4, etc., repeat the same process. 2.4 Develop a strategic plan- Focus on the Fatal-Five This requires addressing the critical road safety risks in a coordinated and systematic way. The primary causes of crashes in priority order should be identified based on the collected data. 1. Speeding = 30% 2. Alcohol impairment = 25% 3. Overloading = 15% Together with the contributing risk behaviours resulting in death or injury; 4. Non-wearing of seat-belts (drivers and passengers) = 50% 5. Non-wearing of helmets (motorcycle riders and passengers) = 50% Data or statistics must be the driving force for the strategic plan and actions. It is irresponsible wasting resources on lesser priority issues. Resources must be targeted to where the main benefit will be achieved. Ten high risk behaviours causing crashes might be identified but it is important to focus on the priorities to achieve the highest impact. Below is a simple template to complete for each of the five risk factors and the actions or countermeasures that can be determined to achieve the desired outcomes. Risk Factor 1 Speeding A: Objective (e.g. To decrease speed crashes by 20% over 12 months) B: Current capacity or activity (e.g. limited education & enforcement) C: Actions & activities to be undertaken to increase enforcement: 1. (e.g. increase media and education, 2. increase enforcement to 2 major 3. ops per district per week for next 6 mths D: Barriers to effective enforcement 1. (e.g. limited speed enforcement equipment 2. competing duty requirements, limited 3. resources) 19

21 E: Key success indicators (Evaluation) 1. (e.g. reduced speed on target roads, 2. reduced crashes across the network, 3. reduced fatalities and injuries) F: Opportunities to increase effectiveness 1. (e.g. Increase enforcement frequency, 2. increase patrols, obtain more and better 3. speed enforcement equipment) G: Resources and start time for implementation Start time Duration Frequency (e.g. 3 months from distribution of plan) (e.g. at least 6-12 months or 2 years) (e.g. frequent and regular operations) H: Resources necessary to achieve the objectives 1. (eg: vehicles, equipment, officers, 2. knowledge, skills and training 3. train the trainer programs) Key Focus Areas (e.g. nominate high risk times, locations, activities education campaigns, enforcement campaigns) 20

22 Partnerships to strengthen (e.g. list, nurture, cultivate & and integrate partnerships. Community or Professional Groups Commercial Industrial Road Authorities Legislative Authorities Service Providers NGO.s Government Agencies Road police At least 3 or 4 primary partners should be identified and several secondary partners to support the plan. List and then engage the partners to assist achieving the objectives. Driving Schools Education Institutions Media Community Groups Repeat this process using the same template for the risk factors 2,3,4 & 5 repeat. Road safety is a community problem not just a policing problem. 2.5 Structure the plan The plan must be a cohesive document providing simple statements of the road trauma problem identifying the high risk factors or behaviours which create the problem for the community. It becomes the road policing plan openly declaring to government, partners, setting direction for the officers and the community as to how it is intended to deal with the challenges. Therefore, it is essential to outline the vision, the strategic objectives, strengths and challenges including the intended outcomes. Once the plan has been now structured around the information gathered, it can be simplified, scripted, with pictures, graphs and diagrams to provide an impact document for the readers. Important segments include: 1. Forward by the Chief Executive providing a brief background and declaring the organizational commitment. 2. Background to road trauma providing key statistics, identifying the risk factors and the rationale for action. 3. The vision, mission statement and strategic direction on how the problem is to be addressed 4. The organizational strengths and challenges which will be overcome 5. The strategy covering the objectives and activities for each of the 5 risk factors 6. The stakeholders, partnerships and community commitment 7. Evaluation process 21

23 8. Summary and conclusion Figure 6. Examples of Strategic Plans - New Zealand, Victoria, Vietnam, New South Wales, Ethiopia Internet links are provided to a number of Road Policing Strategic Plans in the reference section of this document just as examples. It is important not to copy these plans. The plans must be developed in accordance with the framework outlined by the officers and stakeholders (workshops), to suit local socio-economic environment, the community, and the culture, legislation, resources and especially the policing capability. Once the plan has been finalized and published, makes sure it is circulated to all stakeholders and that the implementation of the strategic plan is constantly monitored. 22

24 3 Good practice evidence-based enforcement and targeted enforcement operations 23

25 3. Good practice evidence-based enforcement and targeted enforcement operations THE REALITY OF ROAD POLICING The reality is that not every offender who breaches the law will be caught, therefore it is important to have a strategic approach, use the available resources effectively and achieve maximum results with minimum resources. High profile education and good enforcement strategies will achieve very positive results 3.1. Initial strategies what should they be? Actively encourage all road users to comply with the laws and, especially to respect other drivers, riders and pedestrians Actively promote road safety for the good of the community as major factor in reducing trauma and fatalities - Prevention is easier than detection and apprehension. Actively enforce compliance not just talk about it. Lack of action means lack of results. The strategic plan. Develop and use the strategies. Focus on the fatal five - Don t waste time on activity which does not achieve results and then complain about lack of resources. An initial strategy recommended for about two months is high impact education and awareness programmes to encourage Voluntary Compliance - that is providing advice, education and warnings. However, education is not the only component necessary for the implementation of the law. Enforcement must therefore be applied to ensure compliance. Mandatory compliance is essential for the safety of everyone especially those who won t help themselves or those in their care. Warnings on road safety and education advice can be actioned initially in conjunction with the use of penalties. Voluntary compliance will not work in isolation. Warnings are usually ignored. Road policing actions must be supported by enforcement Ensuring compliance through enforcement The most important outcome to achieve is the road user discipline. Therefore, the basic rules of road discipline must be strictly enforced. This mandates driving on the correct side of the roadway (no contra-flow travel), stopping at red lights and driving within the speed limits. Helmet wearing and seatbelt wearing should be strictly enforced. These latter offences are easy to observe and easily prosecuted or ticketed without challenge. The lack of enforcement of speed limits is a major cause of death and injury in most countries. Enforcement methods must be developed to gain evidence, safely intercept and prosecute offenders. The most effective strategy is to use a structured mix of Education and Enforcement. With a consistent focus on enforcement, road safety gains can be achieved in a relatively short period of time. Communities should initially aim for voluntary compliance, followed by police warnings and then very 24

26 strict and consistent enforcement campaigns. The outcome sought is self-regulation by drivers with limited interventions by police. Once the majority of road users comply with the law, it is easier for self-regulation to occur e.g. non helmet-wearing riders and passengers are shamed into compliance. If they do not comply, they are so much easier to detect. Speeding drivers are easier to detect. Alcohol impaired drivers are challenged and chastised by their colleagues and friends. For effective enforcement, advertising banners or signs should be strategically placed at checkpoints or intervention points. These signs are an inexpensive means of multiplying the effectiveness of both education programmes and enforcement activity. For example: HELMET ENFORCEMENT HELMETS SAVE LIVES BUCKLE UP SPEED KILLS DO NOT DRINK AND DRIVE DO NOT DRIVE AND DRINK Enforcement must be supported by education and education must be supported by enforcement. Checkpoint banners or signs are highly beneficial to multiply impact Strategic enforcement To be effective, strategic traffic law enforcement integrates four fundamental principles of policing. Enforcement practices must ensure: Highly visible and active police enforcement operations (awareness) Repeated operations often - (create perception-anywhere/anytime and for anybody) Strictly and fairly enforced (consistency) Well publicized (media education and public awareness) a) Increased visibility of active police enforcement -This includes highly visible, publicly observable and strategically located checkpoints and roadblocks. These must be varied in location, intensity, time of day and night. There should be many police officers in each working team. Visibility includes signage and banners about the enforcement activity, fluorescent safety vests for police and adequate lighting at night. This does not mean the checkpoints are visible at distance so offenders can avoid the checkpoint and avoid being intercepted. There should be no escape avenues available for offenders - Having a checkpoint routinely in the same location is counterproductive to good policing. b) Repetition of enforcement campaigns - This indicates to the road users that the risks of being caught are high. Repetition means two or three times per week at least, otherwise your officers time and effort is wasted. c) Strict, fair and consistent enforcement - After an initial public warning period, police enforcement should be strict, non-discriminatory, fair and consistent. This will lead to a permanent change in road user habits - not just short term, on highways or where police enforcement can be anticipated. If there is no enforcement, there will be limited or no 25

27 compliance. Strictly - no bargaining, no argument, no VIP treatment, no corruption. VIP treatment is an abuse of power both for the police officer and for the non-compliant offender. d) Well-publicized enforcement - To achieve maximum effectiveness, compliance driven enforcement must be combined with coordinated education and publicity campaigns involving the continuous engagement of government, local government, the mass media, social media and other agencies. This means publicity before, during and after policing activities with reinforced safety messages. Safety brochures on road safety may be handed out with a warning as an alternative to issuing a fine or in addition to issuing a fine. Education and instruction can include reminders for road users to follow safety messages. Television and any media exposure multiplies the effectiveness of police campaigns by providing the message to thousands of viewers rather than just those persons driving or riding through the checkpoint or those offenders intercepted Target enforcement operations Targeted operations should be well planned with all traffic officers being appropriately trained and briefed. Safety should be paramount with major considerations for the safety of the interception officers and the driving public, the safe use of equipment and the selection of checkpoint sites based on safety, security and limited avenues for escape. Intelligence-led policing is a key to the success of modern police traffic operations. Using the data available from crash statistics, especially the reasons why crashes occur and their locations and general knowledge, the main problems can be identified and the outcomes can be determined. By channeling resources into a particular focus, better and quicker results can be achieved. Benefits: Maximum use of scarce police resources Maximum impact across the community Use the radio, media and newspaper to great advantage before, during and after operations Ideal method to address the issues in a particular group e.g. Motorcycle taxis, driving school the corporate sector with big companies to enlist their support. etc. Target the young high-risk males who believe they are immune from crashing and challenge authority by high risk behaviours Target particular times of the day Target particular locations Target collision zones high risk areas reduce crashes in those areas Target pre-collision zones less dangerous for police interceptions and provides a strong preventative approach. NB: The enforcement strategies and operational tactics should always focus on pre-collision zones, because enforcement, interceptions and checkpoints in black spot areas are high risk for the safety of police officers, riders and the public. The aim should be to ensure safety compliance before high risk locations. High profile operations can also be conducted providing warnings to drivers and riders for particular offences e.g. no helmets, no seat-belts - (less resources and less time is used in providing the warnings). 26

28 3.5 Tasking to achieve positive outcomes Police leaders and supervisors have a responsibility to ensure that scarce police resources are used in the best possible way. Likewise patrol officers have a responsibility to ensure that the best use is made of their time. Tasking, directed patrols and directed operations are proven methods to focus enforcement effort, maximize efficiencies and achieve positive results from limited police personnel and resources. Focused enforcement with limited personnel will produce better results than a large number of random patrols operating without a specific purpose. There should be a specific aim for the operational activities to link directly as a countermeasure to a local or generic problem. By analyzing the information obtained in asking the question, what s happening as to the real causes of road trauma, then actions can be identified to ensure that the potential risks for this trauma are eliminated or reduced. E.g. many crashes result in head trauma because of non-wearing of helmets. Therefore, enforcing helmet wearing will reduce head trauma. NB: Use the information from the GRSP Data Management Guide to fine-tune the enforcement activities. 3.6 The team approach The team approach is particularly beneficial where only two or three police officers are available for deployment. For example; For red light offences, officers can be strategically placed through the intersection at 50 and 100 meters to intercept those drivers or riders who refused to comply with the red lights. Vehicles who refuse to stop should be photographed, have their registration numbers recorded and follow up procedures implemented Non helmet-wearing or no seat-belt. At traffic lights where there is a safe interception point just through the intersection. o One officer may stand at the traffic lights and identify riders who stop at the red light and are not wearing a helmet or drivers and passengers not wearing a seat belt. o The offender can be directed by that officer to his colleague(s) at the side of the road o to write out the infringement ticket. While the officers are busy writing out the infringement, the first officer may still continue observations and give brief verbal warnings to other riders/passengers without helmets or chin straps not fastened and then let them continue on their way. NB: There should be no avenue for escape from the detection point to the penalty point. In addition, the intercepting officer should always record the registration number of offending motorcyclist or driver either in a notebook or by photograph. At toll gates using a similar technique At fuel refill locations, shopping complexes or where motorcyclists visit or gather. At laybys or rest locations 27

29 These tactics provide a mix of visible enforcement and warnings (education) to motorists. It also reinforces the perception of anywhere/anytime/anybody. Target enforcement is intelligence-led enforcement and achieves maximum benefit with minimum resources. Tasking ensures that all resources and personnel are used effectively. Working in teams is an effective way to achieve objectives Road user perception of being intercepted The aim of enforcement is to convince road users that the chances of being caught for offences such as speeding, being alcohol impaired, not wearing a helmet, not wearing a seat belt are so great that it is not worth the risk of breaking the law. Therefore, compliance is easier than taking a risk. Firstly, for their own safety Secondly, because the activity is illegal Thirdly, they will be caught and punished. Drivers must believe that the police will be around anywhere/anytime to check that they obey the law for their own safety. It has been proved many times in many countries that there is a direct link between the level of enforcement applied by police and the driver/rider s perceived risk of being caught. It is important for the public to believe that there are many police officers in many different places to ensure that the law is enforced. Effective enforcement strategies aim to increase the road users perception of being caught and punished. Strategic enforcement can achieve sustainable results by raising the percentage of drivers and riders who comply with the law. The aim is to create the perception that the risk of being caught and fined is greater than non-compliance. 28

30 4 Develop standard operating procedures for all police enforcement operations 29

31 4.1 Introduction 4. Develop standard operating procedures for all police enforcement operations Standard Operating Procedures (SOP s) define policies and procedures for all enforcement activities They are intended to enhance enforcement strategies as well as cover the most common situations which may be experienced by Road Policing Officers in the performance of their duties. The SOP s take into consideration the law of the country as well as standards decreed by regulation. They are intended to guide police and road policing operations in the most effective and efficient means of undertaking law enforcement. As a foundation SOP s should at least be applied to each of your most common policing activities identified in your strategic plan i.e. The Fatal Five the major causes of deaths and injuries on your roads. This is to be the focus of your enforcement so your initial guidelines must be complementary to your strategic plan. Other SOP s may, and should be developed for other policing activities in priority order. Information from the data management system will determine the priority causes of deaths and injuries in the country and form the foundation for the strategies and police activities required to minimize the risks of road trauma. As an example used in the development of the strategic plan the fatal five 12 are: 1. Speed 2. Alcohol impairment 3. Overloading 4. Non-wearing of seat-belts (drivers and passengers) 5. Non-wearing of helmets (motorcycle riders and passengers) There must be an SOP developed for each of these offence categories so that the enforcement guidelines are relevant to the local policing circumstances and standardized across the region. Each of SOP s must be framed around the data and take into account: Location and frequency of crashes national highways, cities, villages, rural roads Time of crashes a substantial level of incidents of deaths and injuries occur after dark The percentage of road users killed or injured as a result of the identified risk(s) Example: If the statistics advise that a high percentage of crashes occur on national highways and at night, the SOP s must particularly prescribe guidelines for (a) officer safety, (b) night-time checkpoint operations and (c) safety with enforcement on national highways. 12 These may not be those identified in your jurisdiction, however are used as a consistent example to provide some continuity to this document. 30

32 These enforcement guidelines ensure that the police actions are decisive, consistent and legal so that officers are confident and at all times maintain their professional conduct. 4.2 Purpose of SOP s SOP s are instructions intended to provide guidance to road policing officers in the fair and consistent application of the law. They are intended to cover the most common situations which may be experienced by officers in the performance of their duties. In the absence of a specific guideline for a particular circumstance, traffic police officers should apply commonsense under the principle of fair and consistent enforcement of the law. Traffic police officers must know and understand: The law and regulations as they apply to road users Their authority to enforce and the penalties which may be imposed The consequences and risks of non-compliance with the law How to educate the community and offenders of the road safety risks involved in poor driver behaviours 4.3 Good practice methodology for developing guidelines As the operational police are the foundation of the enforcement actions, it is essential to involve experienced operatives in the development of the guidelines. This is the most appropriate way to identify the real enforcement issues. A good practice is to organize a series of focus group discussions. For a large organization, this may involve representative groups of about 15 personnel in a number of cities and regional areas. While the responses may be similar from each location, representative officers input is important in voicing their experience to provide these guidelines. Representative views must be obtained from: Field operatives Supervisors Managers Commanders Road safety partners The number of workshops required for a representative sample of views should be a minimum of 4 workshops, each with about 15 personnel these officers should be experienced field operatives and supervisors. Managers, commanders and road safety partners may be interviewed separately. The key and critical issues can be extracted from the discussions and advice and then form the basis of the SOP s. Do not try and adopt an easy approach by copying the SOP s of the road police of another country. This is counter-productive to good management. Even copy and paste from a neighbouring country with similar cultural values may prove non-productive, because: the legislation will be different the circumstances encountered by the field officers will be different the political and environmental situation will be different 31

33 most importantly, there will be no input from the local field operatives and if this becomes known the guidelines may be rejected by the officers 4.4 The identification of problems and how to deal with these issues The focus group discussions will identify key and critical issues for consideration. As an example, issues raised in previous group discussions include: Non-wearing of helmets How best can I provide enforcement there are thousands of non-wearing helmet riders and only few police? What if the offender puts a helmet on as they approach my checkpoint? How can I tell if the rider is wearing an authorized or standard helmet? What about a builder s helmet, military helmet, a jockey cap or a helmet which does not conform to the national standards? What if the rider does not have the chin-strap fastened? Can I give them a ticket? What if there is a family including mother, father and four children all without helmets? What about the non-wearing of helmets by children? I am not sure on three wheeled vehicles tricycles, or motorcycles and trailers or farm equipment on the highways What if the police, military and government officials don t set an example by wearing a helmet, why should I penalize other riders? Speed enforcement How can I safely intercept a speeding driver or rider? What if the driver doesn t stop? What if the driver argues about the alleged speed? What if the driver challenges my testing equipment? Drink Driving What if the driver refuses to be tested? What if the driver drinks alcohol after being stopped and just before being tested? What if the driver continues to drive after being tested positive? Can I let him drive home? What if the driver fails to blow strongly enough to register or blows too strongly to register a reading? Can I let the driver park and secure his vehicle after testing positive? Overloading Can I let the driver continue to drive to the destination even after being found to be overloaded? Do I have the power to impound the vehicle? Do I have the power to forbid the vehicle to be driven unless unloaded to the correct weight? Does the overloading limit include both the transport vehicle and the weight of the load? 32

34 Failing to wear seat-belts What if the driver complains that they are uncomfortable and restrictive to wear? What if the passengers complain that the seat belts are dirty? What if a pregnant woman refuses to wear the seat belt because it may harm the unborn baby? What if the seat-belts don t fit e.g. young children? What if the driver uses the excuse that he doesn t want to be trapped in a vehicle if it crashes and catches fire? Generic issues Should I provide education as well as the penalty or is the penalty sufficient? What if the offender gives an urgent excuse such as rushing to hospital or going to school to pick up children? What is the offender refuses to pay the fine? What if the offender offers a bribe to forgo the penalty? What if the offender claims an exemption? What if the offender is a military personnel or a police officer in uniform? What if the offender is a student with no money to pay the fine? What if I just ignore the law and don t issue a penalty? What if the offender tries to avoid the checkpoint? What if the offender is a VIP or government official? What if the offender refuses to stop at the checkpoint? Can I provide a warning instead of a penalty to poor families? There will be many other issues raised by the field operatives. It is important to understand the concerns and deal with them. By documenting these concerns and converting them to guidelines, the SOP s will provide a sound framework for all field officers to work within the law and the policy of the road policing authority. Senior officers should also be consulted in this process. Some considerations raised in executive workshops include: How can we increase the performance of police at our checkpoints? (Training/professionalism) How can we increase the efficiency at our checkpoints - throughput? (Training) How can we reduce complaints? (professionalism) How can we avoid corruption or allegations of corruption? (Professionalism) How can we ensure the safety of our field officers? (Training and safety procedures) How can we ensure public cooperation? (Public support, Partnerships, Media) How can we apply standards across the country? (Standards, Professionalism) How can we ensure that a disciplined process is maintained? (Professionalism, Training) These issues must be addressed so that the final SOP s for each of target offences provide a structured framework for the field commanders, supervisors and field operatives. 33

35 4.5 What should be included in the SOP s? SOP s are not law or regulations, however, they must be issued under the authority of the Chief Police officer or the executive of the organization. While they are not law they should provide clear guidance for field operatives and supervisors so that problems in the field are minimized, officers act in a disciplined and professional manner and standards can be observed across the organization. If called to account, senior officers must be prepared to stand by the SOP s if field operatives act in good faith and the actions of that field operative results in a complaint. If the field operatives act in contravention or ignorance of the SOP s, then remedial action should be taken to correct the problem. A sample and basic format for SOP s (for helmet-wearing enforcement) will be: 1. Introduction and rationale for the SOP s including the road safety situation and the impact that non-wearing of helmets has on road trauma 2. The rationale for wearing a helmet safety features including the intended aim to reduce or minimize head injuries 3. Standards for helmet design and wearing 4. The law on helmet-wearing, penalties for non-compliance, the legal authority for police to take action 5. Police directives including the need to develop strategic, operational and tactical plans 6. How to deal with common scenarios likely to be confronted by field officers. These may best be set out in a table format with the issue in the left hand column and the guideline in the right hand column. Consider there may be up to 20 issues required to be provided in the advice and guidelines. If diagrams or examples are required, they should be included. 7. How to set up a checkpoint for helmet enforcement operations (See section 5). 8. How to measure the performance (See section 6). The guidelines should be widely circulated for comments particularly to the members of the focus group discussions and then endorsed by the Chief Police Officer or Executive. The guidelines should be published internally on the police intranet or by a booklet. They should also be available externally for the purpose of transparency. In some countries, it is common practice for defense lawyers, to access police SOP s and then criticize the police in courts for not following these SOP s to the letter. It must be remembered that these SOP s are only guidelines not law. As long as the police officer is acting in good faith and in accord with common sense then they should be supported by the leaders. In the case of helmet-wearing the legal and relevant facts for consideration by a court are whether the offender was or was not wearing a helmet not whether the officer complied strictly to the letter of the SOP s. 34

36 Figure 7. Cambodian National Police Guidelines for helmet - Figure 8. Cambodian National Police Drink Driving Enforcement Guidelines 35

37 5 Ensure that the road policing operations are planned, effective, efficient and safe 36

38 5. Ensure that the road policing operations are planned, 5.1 Introduction effective, efficient and safe Checkpoints, mobile interceptions and police stop-points must be designed to systematically and safely stop selected drivers or riders in order to check for all types of safety related offences especially in targeted enforcement operations. The process of intercepting moving vehicles in the flow of traffic for random or specific enforcement is an action requiring the utmost attention to planning, risk assessment and safety. Checkpoints are an efficient means of traffic enforcement providing highly visible and active police presence. They ensure that all vehicles travelling on the road can be funneled through a target checkpoint location and that non-compliant offenders can be stopped and processed. 5.2 Checkpoint objectives MAXIMUM VISUAL IMPACT - To ensure that the maximum of drivers observe or are aware that police are checking for high risk behaviours and offences in compliance with legislation DETERRENCE - To deter drivers from committing offences by increasing the perceive risk of being apprehended PREVENTION - To systematically check drivers, riders and passengers for legislative offences and safety requirements DETECTION - To detect and process offenders who do not comply From these objectives, it is important to focus on the priorities: Primary objective: That the maximum number of road users observe that traffic police are undertaking active and visible enforcement Secondary objectives: To educate and penalize those offenders who do not comply with the law To assist in community and road user education on the dangers of high risk behaviors speeding, drink driving, overloading, non-wearing of helmets and non-wearing of seat belts 5.3 Site location and safety The site location should be carefully chosen in consideration of safety and strategically positioned to allow for: maximum visual impact minimum congestion of traffic ensuring that the site can be set up and dismantled with minimum disruption to traffic minimum avenues for evasion by road users trying to avoid the checkpoint helmets and seat-belts: Limited opportunity for those not wearing a helmet to put their helmet on prior to reaching the checkpoint or for non-belted drivers and passengers to buckle-up before the interception traffic police have sufficient resources and numbers to man the checkpoint protective equipment such as fluorescent safety vests are available for use by all officials at the checkpoint 37

39 when the checkpoint is established a traffic police officer is appointed to undertake a walkthrough or ride-through the checkpoint to check the visual impact from the road user s perspective 5.4 Site safety plan A site safety plan is to be developed for all locations where planned checkpoints are to be undertaken. This will include: a sketch of the checkpoint location, an assessment of safety factors the name of the Safety Officer record of activities to be undertaken safety equipment to be used 5.5 Operational planning to prevent escape of suspects The operational plan must take into consideration checkpoint avoidance or the escape of potential offenders. The checkpoint location and set- up is therefore critical to avoid this happening. From experience in many countries, some drivers will stop well before the checkpoint, divert onto the incorrect side of the roadway or complete a u turn and escape. Riders will ride on the footway, turn or complete a u turn and ride contra-flow to the traffic. All these manoeuvers are highly dangerous. Strategies should be considered to prevent these actions while at the same time ensuring safety. 5.6 Safety officer The Operations Commander is to appoint a Safety Officer for every check point. The Safety officer is responsible to ensure: a site safety plan has been prepared the safety of all officers and the public at the checkpoint is treated with the highest priority the safety of the drivers and riders going through the checkpoint NB: The Safety Officer must not be the operations commander because the commander s responsibilities are broad including accountabilities to government, the police organization, police members, policies, procedures, adherence to guidelines and of course, including safety. 5.7 Signage at the checkpoint In addition to signage advising of a police checkpoint, signage should be in position at the checkpoint to provide enhanced community and driver awareness of the particular target offence. E.g.1. Helmetwearing: Police helmet wearing checkpoint or Always wear your helmet, Helmets save lives. 2. Seat-belt wearing: Seat-belts Save Lines, Always wear your seat-belt. 3. Drink driving enforcement: Do not drink and drive, do not drive and drink 4. Speeding: Speed kills For effective enforcement, advertising banners or signs should be strategically placed at checkpoints. These signs are an inexpensive means of multiplying the effectiveness of enforcement. 38

40 5.8 Vehicles of detained persons A consequence of operating a checkpoint is that a number of motor vehicles may be detained at the interception point or abandoned by the offenders. Consideration must be given in the site selection to ensure that there are satisfactory arrangements for vehicles to be parked safely at or near the checkpoint. Alternatively, arrangements can be made for vehicles to be conveyed to a safe location or a police compound. This complicates the process in the need to commit additional resources to this task. 5.9 Efficiency in processing subjects It is important that the checkpoint does not create undue congestion of traffic. The process should be streamlined so that offenders are processed efficiently. This is a display of police professionalism to the general public, senior officials and the offenders. 39

41 6 Monitoring and evaluating the success of enforcement operations 40

42 6. Monitoring and evaluating the success of enforcement operations 6.1 Introduction Modern policing must be intelligence-led using all available information, statistics, attitude surveys and other data so that operations can be planned to achieve the maximum success. This is one way of identifying what works and what doesn t work in traffic enforcement and determine what are the best policing methods to achieve success by efficiently using the limited resources. What will work in one area may not work in another area. Some good ideas put into operation in one area may not work in another. Policing methods on an expressway are different to policing methods in the urban and rural environment. Successful operations are always judged on good performance measures. There needs to be a range of different performance measures to check on the success of an operation. In policing, the success of an operation is not measured by the most number of traffic violations issued, but more importantly by how many lives were saved or are saved in the future because of the police interventions and actions. i.e. concentrate on outcomes. Internationally, performance measures for police are considered to be difficult to collect because it means recording and collating various actions and activities. Sometimes police patrol officers believe it is a waste of time and do not record the correct information or make up some figures just to please their supervisors. These actions are counter-productive to discipline and road safety. 6.2 The key points to identify are: What is the desired outcome from any enforcement activities? - What are the actions required to achieve those outcomes? What are the key messages to convey to the public? What are the major barriers to public acceptance of the programme? What information can be measured? The following information should therefore be recorded from the checkpoint operations: For helmet-wearing enforcement: The number of riders detected without helmets The number of passengers detected without helmets The number of children detected without helmets The number of riders and passengers wearing helmets but without chin straps fastened The number of citations/infringements issued The number of warnings given to riders or passengers For seat-belt wearing enforcement: The number of drivers not wearing a seat-belt The number of passengers not wearing a seat-belt The number of children not wearing a seat belt 41

43 The number of citations/infringements issued The number of warnings given to drivers or passengers For speed enforcement: The number of drivers travelling over the posted speed limit The number of citations/infringements issued The number of warnings issued The highest speeds recorded The average speeds from those detected For drink driving enforcement: The number of breath tests undertaken The number of positive tests The number of drivers detected over the limit The number of those refusing to be tested The number of those failing to provide a proper sample of breath for testing The highest reading The average reading of those testing positive For overloading enforcement The number of vehicles checked The number of vehicles detected as overloaded The number of vehicles required to unload at the interception point Generic information for all offences The age, sex and occupation of offenders The hours spent on enforcement at the checkpoint location The number of other offences detected or warnings issued e.g. alcohol impaired riders The number of police officers (and other government personnel) used for the check point enforcement effort The number of check points in operation per week/month The number of positive reports in the media about the check point operations Each officer has a responsibility to measure their role in the programme and ensure that all the information is collected. If an outcome is obvious and can be measured - there is an incentive to continue with the positive action. 42

44 6.3 Performance indicators summary points Performance indicators and outcomes for road policing ACTIONS PROPOSED: * Increase Police checkpoints and high visibility * Increase Enforcement patrols, interceptions * Target Enforcement Perception Enforcement Anywhere, Anytime RECORD PERFORMANCE INDICATORS: No. of General Operations No. of Target Operations No. of Checkpoints No. of Media Warnings by Police No. of Public Lectures No. of Warnings to offenders No. of Infringements/violations MEASURE and RECORD: Crashes crash types, killed, injured, causes, times,location, vehicles,causes, frequency Crash Severity Hours of Police Operations No. of Police on enforcement activity OUTPUTS - e.g. * Increased Helmet Wearing daytime and night-time * Increased seat-belt wearing * Increased compliance with speed limits * Increased compliance with drink driving laws * Public Attitude Surveys (Changed Attitude to risk behaviours safety as priority OUTCOME Reduced trauma % Fatality Reduction % Injury Reduction % crash reduction DETRACTORS: Drivers and riders increase over time Campaigns and enforcement needs to be maintained Other Police Issues are Given Priority e.g Public Order, Crime Control VIP Escorts, Non Road Safety Matters Figure 9. Performance indicators and outcomes for road policing 43

45 7 Summary 44

46 7. Summary These guidelines have been designed to support the effective traffic police operations for enforcement against drivers and riders who continue to put themselves and others at risk by their non-compliance with safety and the law. Compliance with these guidelines will ensure that normal law abiding citizens are treated with respect, offenders are treated fairly and maximum impact is gained to ensure road trauma reduction. Discipline on our roads will result in safety on our roads safety for everyone especially our future generation. Effective enforcement strategies aim to increase the road user s perception of being apprehended if they continue with high risk behaviours or do not comply with the law. Education is critical to support enforcement. maximum success will be achieved by combining education and enforcement. Once a driver or rider is convinced of the safety value of disciplined road user behaviour, they will be encouraged to consistently comply with the law rather than comply through the fear of enforcement. Enforcement must provide a meaningful and deterrent threat to road users who do not comply with the law, and The perceived risk of apprehension by the drivers and riders must be high. 45

47 Further Reading Good practice manuals Several good practice manuals have been published by the United Nations Road Safety Collaboration, World Health Organization and Global Road Safety Partnership. They have been translated into many languages. They are not road policing specific, however, have good practice law enforcement and road policing content within the manuals. This website is an excellent source of road safety information. The following listed manuals can be downloaded as required: Speed Management A road safety manual for decision-makers and practitioners (2008) Drinking and driving A road safety manual for decision-makers and practitioners (2007) Helmets A road safety manual for decision-makers and practitioners (2006) Data systems A road safety manual for decision-makers and practitioners (2010) Pedestrian Safety a road safety manual for decision-makers and practitioners (2013) Glossary Anywhere/anytime/anybody: The public must know the seriousness of road traffic offences, that road traffic offences are illegal and that there is a high probability that they will be caught and prosecuted, if they commit an offence. Drivers must believe that committing an offence is not worth the risk of being caught and punished. No one is exempt. Jurisdiction: The practical area of authority and responsibility that is to be the subject of this review. It may be a country, a province or district. SOP s: Standard operating procedures SWOT Analysis: A smart and effective way to assess organizational capacity through Strengths, Weaknesses, Opportunities and Threats. TNA: Training needs analysis/assessment. Links to sample Road Policing Strategic Plans Victoria Police: New Zealand Police: California Highway Patrol Strategy: TISPOL Road Policing Network: 46