Press Release  Independent Massachusetts Motor Vehicle Uniform Citation Data Analysis and Report Released

Boston — The Executive Office of Public Safety and Security (EOPSS) released a public report analyzing two years of motor vehicle citation data conducted by a research team from Salem and Worcester State Universities. The report fulfills a requirement of the 2019 Hands-Free Law (formally known as An Act Requiring the Hands-Free Use of Mobile Telephones While Driving) that prohibits drivers from using electronic devices, including cell phones, unless the device is in hands-free mode.

Pursuant to the law, EOPSS contracted with independent researchers to analyze 2021 and 2022 data maintained by the Registry of Motor Vehicles (RMV) regarding all motor vehicle citations issued by local and state police agencies in Massachusetts. Based on the uniform citation data, the researchers conducted an aggregate analysis of all stopped motorists, including age, gender, and race. The study also reviewed the date and time of the offense, location, whether a search was initiated, and whether the stop resulted in a warning, citation, or arrest.

Today’s two-year report follows the February 2022 baseline analysis of 2020 uniform citation data conducted by the same research team. The number of citations increased significantly in 2021 and 2022, allowing researchers to compare trends over time and consider more departments that met the minimum threshold of 100 citations. The latest report differentiates between stops and citations. In keeping with best practices, researchers used multiple types of analysis to examine potential racial disparities.

The report analyzed 1,270,129 unique traffic stops conducted during the two-year period, resulting in a total of 1,358,720 citations.

“The hands-free law established a research mandate to gain data-driven insight into police traffic stops and determine whether any patterns indicate racial disparities,” said Public Safety and Security Secretary Terrence Reidy. “The study aims to learn more about potential patterns, inform stakeholder discussions, and advance the impartial, equitable, and just enforcement of Massachusetts traffic laws. I commend the research team for their hard work and in-depth analysis.”

Click here for the Executive Summary, Full Report, and Appendix of the 2021 and 2022 Massachusetts Uniform Citation Data Analysis Report.

Study Methodology

For the 2021 and 2022 analyses, researchers used multiple types of descriptive and associative statistical analysis. A detailed explanation of the researchers’ methodological approach starts on page 25 of the report.

Researchers conducted three unique statewide analyses and five unique department-level analyses. In each of the 364 departments subject to individual consideration, the first three analytical tools examined potential racial disparities in the decision to stop. The last two examined potential racial disparities in post-stop outcomes, including the decision to issue a warning or a citation and conduct a non-inventory search.

Researchers analyzed stops that occurred at all times of the day and conducted a more focused analysis of stops occurring during the Intertwilight Period (ITP), during which it is light out for some months and dark for others, to better control for demographics of drivers on the road at different times of the day. Researchers used an analytical tool known as “Veil of Darkness” for this portion of the analysis, which presumes that a driver’s race is less evident after dark than in the light. The VoD theory states that higher rates of motor vehicle stops of non-white drivers during daylight than after dark are indicative of racial disparities. This analysis of ITP stops was used to identify state and municipal police departments for potential racial disparities.

Beyond the Veil of Darkness analysis, the research report summarized the demographic and contextual characteristics of stop events and cited motorists both statewide as well as individual, department-level analysis for the data collection period.

Findings

A detailed list of research findings is available in the Executive Summary and the full report (beginning on page 47). The findings include analytical results at the state and department level, including characteristics of stops, demographics of stopped motorists, and test results for disparities in traffic stop outcomes and the decision to search.

The researchers identified three agencies in 2021 and five agencies in 2022 for potential racial disparities. In the 2021 data analysis, researchers identified Southwick Police Department, Westwood Police Department and Massachusetts State Police Troop C-4. In the 2022 data analysis, researchers identified the Hanover Police Department, Ludlow Police Department, Wrentham Police Department, Boston Police Department District E-18, and Massachusetts State Police Troop C-3.

Regarding the 2021 and 2022 findings, the research report states, “We caution that these findings DO NOT prove that any of the listed departments are engaging in racial profiling; there are many explanations for racial disparities in traffic enforcement other than officer bias. These findings simply serve as a starting point for further discussion and reflection.”

The report further states, “Additionally, stakeholders are encouraged to consider the other key measures provided in individual department data sheets (and not VoD alone) when starting conversation(s) about racial profiling, acceptable thresholds, and appropriate solutions and responses. VoD is one way of studying the decision to stop, but patterns evident in outcomes (warnings, civil, criminal, arrest citations) and searches vary significantly across agencies and are important to examine in detail, case-by-case as well.”

Under the statute, EOPSS will consult with the Massachusetts Office of the Attorney General to determine the next steps based on research findings, including whether additional data collection or training is required for select law enforcement agencies.

Data Limitations

Researchers detail the limitations of the available data beginning on page 57 of the report. Most notably, the data reflects only stops that resulted in at least one citation and does not include information regarding stops in which an officer issued only a verbal warning, an area where officers have the greatest discretion.

In addition, researchers note that race and ethnicity are based on officer perception and not indicated on the Massachusetts driver’s license. Also, the data does not reflect whether a motor vehicle stop was initiated at an officer’s discretion or prompted by factors that limited an officer’s discretion, such as a radio call or a warrant; the alleged infraction that preceded a stop, which may range from defective equipment to signs of impaired, distracted or aggressive driving that present a risk to the lives and safety of other road users; or information on an operator’s prior driving record, which may impact whether the stop results in a warning, citation or arrest.

While the researchers found the relationships between data points, such as relationships between demographic information and motor vehicle stop outcomes, to be “statistically significant,” they cautioned that the data does not provide insight into causation.

2020 Online Data Dashboard

In addition to the report published today, pursuant to the Hands- Free Law, an online dashboard containing data on uniform motor vehicle citations is now available on Mass.gov. The available online data released today includes information on more than 422,000 motor vehicle citations issued by Massachusetts police departments in 2020 and subsequently analyzed by the independent research team in their first baseline report.

The dashboard marks another step toward meeting the statute’s requirements by making the 2020 aggregate data available to the public. Users can view all citations issued and sort the data by individual law enforcement agency, motorist age, gender, and race, the outcome of the motor vehicle stop and other criteria. The dashboard also includes missing and unknown data that were excluded from the data analysis contained in the report released last year.

Aggregate data from 2021 and 2022 is expected to become available on the dashboard later this year.

Public Meeting Schedule

EOPSS will hold a series of virtual public hearings to present the new report and accept feedback from the public. Hearings will be held:

• March 20,1:00 pm (Wednesday)
• March 21, 10:00 am (Thursday)
• March 26, 2:00 pm (Tuesday)

To find out more about how to access the public meetings, visit Mass.gov.

Written comments will also be accepted until 5:00 p.m. on April 11. They may be emailed to Citationdata@mass.gov or mailed to: Attn: Citation Data Research, Executive Office of Public Safety and Security, One Ashburton Place, Room 2133, Boston, MA 02108.

###