Roadway Safety Data Program
 

WASHINGTON STATE AND TRIBAL DATA SHARING
 

PARTNERSHIPS
 

ROADWAY SAFETY DATA AND ANALYSIS
 

CASE STUDY
 

FHWA-SA-16-111
 

Federal Highway Administration Office of Safety
 

Roadway Safety Data Program
 

http://safety.fhwa.dot.gov/rsdp/
 

December 1, 2016
 
 

 

 

 

 

 

 

 

 

 

 

 

 

WASHINGTON STATE AND TRIBAL DATA SHARING PARTNERSHIPS
 

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1. Report No. 

FHWA-SA-16-111 

2. Government Accession No. 3. Recipient's Catalog No. 

 

4. Title and Subtitle 

Roadway Safety Data and Analysis Case Study: Washington State and Tribal Data 

Sharing Partnerships 

5. Report Date 

November 2016 

6. Performing Organization Code 

7.Author(s) 

Elissa Goughnour, Richard Brown, Robert Scopatz 

8. Performing Organization Report No. 

9. Performing Organization Name and Address 

VHB 

8300 Boone Blvd., Suite 700 

Vienna, VA 22182-2626 

10. Work Unit No. 

11. Contract or Grant No. 

DTFH61-10-D-00022 (VHB) 

Task Order T-13-003 

12. Sponsoring Agency Name and Address 

Federal Highway Administration Office of Safety 

1200 New Jersey Ave., SE 

Washington, DC 20590 

13. Type of Report and Period 

Case Study 2015-2016 

14. Sponsoring Agency Code 

FHWA 

15. Supplementary Notes 

The contract manager for this report was Esther Strawder 

16. Abstract 

In Washington State, the traffic fatality rate for Native Americans is 3.5 times higher than the rest of the population. Tribal 

and State agencies have recognized the need for improved data in order to accurately identify and address Tribal 

transportation safety challenges. In 2007, the Washington State developed the eTRIP/SECTOR software program to 

efficiently bring together data sources and share data. While some Tribes have begun using the software, other Tribes have 

expressed data security concerns. Washington Traffic Safety Commission has been working as liaison between Tribal 

agencies and the eTRIP/SECTOR team to address those concerns and facilitate Tribal transportation data sharing. 

17. Key Words: 

Tribal, data sharing, data integration, law 

enforcement. 

18. Distribution Statement 

No restrictions. 

19. Security Classif. (of this report) 

Unclassified 

20. Security Classif. (of this page) 

Unclassified 

21. No. of Pages 

 18 

22. Price 

Form DOT F 1700.7 (8-72)Reproduction of completed pages authorized 

WASHINGTON STATE AND TRIBAL DATA SHARING PARTNERSHIPS
 

TECHNICAL DOCUMENTATION PAGE
 

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WASHINGTON STATE AND TRIBAL DATA SHARING PARTNERSHIPS 
 

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WASHINGTON STATE AND TRIBAL DATA SHARING PARTNERSHIPS 
 

TABLE OF CONTENTS
 

INTRODUCTION.........................................................................................1
 

BACKGROUND............................................................................................................1
 

OBJECTIVE....................................................................................................................2
 

AUDIENCE....................................................................................................................2
 

IMPLEMENTING ETRIP AND SECTOR....................................................................2
 

PROGRAM APPLICATION.........................................................................3
 

TRIBAL JURISDICTION AND DATA SHARING ISSUES ......................................4
 

TRIBAL SECTOR IMPLEMENTATION.....................................................................5
 

Lummi Experience .....................................................................................................6
 

Puyallup Tribe .............................................................................................................6
 

ADDRESSING TRIBAL DATA SHARING CONCERNS .........................................7
 

RESULTS .......................................................................................................8
 

BENEFITS ......................................................................................................................8
 

NEXT STEPS.................................................................................................................8
 

REFERENCES................................................................................................9
 

AGENCY CONTACT INFORMATION...................................................10
 

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WASHINGTON STATE AND TRIBAL DATA SHARING PARTNERSHIPS
 

List of Figures
 

Figure 1. SECTOR Workflow Diagram..........................................................................4
 

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WASHINGTON STATE AND TRIBAL DATA SHARING PARTNERSHIPS
 

ACRONYMS 

ACRS Automated Crash Reporting System 

BAC Blood alcohol content 

CODES Crash Outcome Data Evaluation System 

EMS Emergency Medical Services 

FARS Fatality Analysis Reporting System 

FHWA Federal Highway Administration 

GIS Geographic Information System 

GUM General Use Model 

HSIP Highway Safety Improvement Program 

HSP Highway Safety Plan 

IRB Institutional Review Board 

LEI Lower Extremity Injury 

LTAP Local Technical Assistance Program 

MHSO Maryland Highway Safety Office 

MVA Motor Vehicle Administration 

NCSA National Center for Statistics and Analysis 

NHTSA National Highway Traffic Safety Administration 

NSC National Study Center (for Trauma and Emergency Medical Services) 

QA/QC Quality Assurance/Quality Control 

SHA State Highway Administration 

SHSP Strategic Highway Safety Plan 

STAR Shock, Trauma, and Anesthesiology Research 

TRCC Traffic Records Coordinating Committee 

TTAP Tribal Technical Assistance Program 

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EXECUTIVE SUMMARY
 

In Washington State, the traffic fatality rate for Native Americans is 3.5 times higher than the 

rest of the population. Tribal and State agencies have recognized the need for improved data in 

order to accurately identify and address Tribal transportation safety challenges. In 2007, the 

Washington State developed the eTRIP/SECTOR software program to efficiently bring together 

data sources and share data. While some Tribes have begun using the software, other Tribes 

have expressed data sharing concerns. Washington Traffic Safety Commission (WTSC) has 

been working as a liaison between Tribal agencies and the eTRIP/SECTOR team to address 

those concerns and facilitate Tribal transportation data sharing. 

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INTRODUCTION
 

In Washington State, the traffic fatality rate for Native Americans is 3.5 times higher than the 

rest of the population. While the fatality rate for Native Americans is decreasing, that decrease 

is slower than that of other populations.(1) The Washington Transportation Safety Commission 

(WTSC) works to address Tribal transportation safety concerns through the Tribal Traffic 

Safety Advisory Board that assists both the Tribes and the WTSC in a number of initiatives to 

reduce fatalities and injuries on Tribal lands. The Board held a strategy session in the fall of 

2015 and identified data improvement as the greatest need to address traffic safety. This session 

also revealed Tribal jurisdiction over data is a key issue as Tribes prefer not to share crash data 

due to sovereignty concerns.(2) In 2007, the State developed the Electronic Traffic Information 

Processing (eTRIP) software program to bring together data sources and efficiently share 

data.(3) Some Tribes have expressed data sharing concerns over a component of eTRIP—a free 

program called Statewide Electronic Collision & Ticket Online Records (SECTOR). SECTOR is 

an automated data-collection system providing Law Enforcement Officers the ability to create 

and submit tickets and collision reports electronically from their patrol car or other agency 

computer. SECTOR also provides prosecutors the ability to review, reject, or accept criminal 

tickets generated by an officer. The prosecutor also has the ability to generate tickets and route 

all approved tickets to the appropriate court. WTSC has been working as liaison between 

Tribal agencies and the eTRIP/SECTOR team to address those concerns and facilitate Tribal 

transportation data sharing. 

BACKGROUND 

Washington State and Tribal agencies have been working through the years to grow their 

relationships and achieve mutual goals. In 1989, the State of Washington and the 26 federally 

recognized Indian Tribes of Washington established the Centennial Accord to establish goals 

for improved services and identify the obstacles to achieving those goals. The Accord provided 

a framework for government-to-government relationship building by acknowledging and 

respecting the sovereign status of the parties, improving and enhancing communications, and 

facilitating issue resolution. 

Under the provisions established by the Centennial Accord, the WTSC works to address the 

transportation safety concerns in Indian Country through its Tribal Program. The WTSC Tribal 

Program is guided by Target Zero, Washington State’s Strategic Highway Safety Plan (SHSP), 

and is advised by a Tribal Traffic Safety Advisory Board.(4) The Tribal Traffic Safety Advisory 

Board assists both the Tribes and the WTSC in a number of initiatives to reduce fatalities and 

injuries on Tribal lands. The Board meets on a monthly basis and have guided the development 

of culturally relevant safety educational materials, including videos and print items.(5) In addition 

to the monthly meetings, the Board also holds strategic planning sessions. During the fall 2015 

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strategy session, the board identified data improvement as the greatest need for addressing 

traffic safety concerns. This session also revealed that Tribal jurisdiction over data is a key issue 

as Tribes prefer not to share crash data due to sovereignty concerns.(2) One method for 

improving Tribal data is through the SECTOR program, a State developed data-collection 

software that facilitates data integration and analysis.(6) WTSC has been instrumental in working 

with Washington State Patrol (WSP) to conduct outreach to Tribal communities and promoting 

SECTOR. 

OBJECTIVE 

Both Tribal and Washington State agencies recognize the need to address the high proportion 

of Native American traffic related fatalities throughout the state. A key mechanism to 

identifying and addressing transportation safety concerns is through data improvements. The 

TRC eTRIP/SECTOR software provided at no costs to law enforcement agencies within the 

State has improved data integration and sharing among Tribal, State, and local law enforcement 

agencies along with transportation, licensing, and judicial agencies. However, some Tribes have 

expressed concerns regarding the ability of certain users to view Tribal data and the potential 

for misuse. The State and Tribal agencies have worked together to address these concerns and 

are in the process of implementing a solution that will allow more Tribes to share data through 

the eTRIP/SECTOR software. 

AUDIENCE 

This case study applies to the following audiences: 

 State Agencies: Governor’s Highway Safety Program, State Department of 

Transportation, State Law Enforcement, State Department of Public Safety, TRCCs, and 

Office of Highway Safety. 

 Tribes: Tribal government, Tribal transportation agencies, Tribal liaisons to federal, State 

and local governments. 

 Federal: Bureau of Indian Affairs and other agencies working with Tribes, Federal 

Highway Administration, NHTSA. 

IMPLEMENTING ETRIP AND SECTOR 

SECTOR is a part of the eTRIP initiative; a collaborative effort initiated in 2007 among State and 

local agencies to create an integrated system through which they share traffic-related 

information. The Washington State Traffic Records Committee (TRC), a statewide stakeholder 

forum created to facilitate the planning, coordination, and implementation of projects to 

improve the State’s traffic records system, initiated eTRIP. The TRC is comprised of 

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representatives for State and local interests from the transportation, law enforcement, criminal 

justice, and health professions and includes Washington State Department of Transportation 

(WSDOT) and the State’s designated highway safety office, the WTSC.(7) The primary purpose 

of eTRIP is to reduce inefficiencies in the former paper-based process of collecting and sharing 

criminal and traffic citation, infraction, and collision information. There are currently 22 

separate eTRIP projects occurring at various agencies and that fall into the following 

categories:(8) 

 Hardware Acquisition (Scanners, Printers) for Local Law Enforcement. 

 Local Law Enforcement SECTOR Implementation Support. 

 SECTOR Training Administrators. 

 SECTOR enhancements, based on eTRIP Governance Team priorities. 

 SECTOR Law Table for Municipalities. 

 SECTOR Prosecutor Training. 

 SECTOR Implementation. 

SECTOR is a stand-alone application that automates collision and traffic infraction and citation 

reports for law enforcement officers and uploads the reports to a central server. The reports 

are then routed to the appropriate agencies for subsequent processing and disposition.(6) WSP 

provides the SECTOR application at no cost to local law enforcement agencies. However, while 

the program is free, the local agencies must have the hardware and network availability to 

support the program. The local agency designates a system administrator to manage user 

accounts and download the SECTOR program. 

The Washington Association of Sheriffs and Police Chiefs (WASPC) coordinates SECTOR 

implementation throughout the State. The implementation process includes a presentation and 

demonstration of the software application and collection of deployment information. 

PROGRAM APPLICATION 

Figure 1 illustrates the SECTOR workflow. The SECTOR software is typically installed on an 

internet-accessible laptop in a patrol car. However, the officer can use SECTOR without a live 

internet connection as the software temporarily stores data in a local database. The officer then 

sends tickets and collisions to the SECTOR Central Server where Report Reviewers will 

download pending collision reports and perform a supervisory review.(9) 

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Figure 1. SECTOR Workflow Diagram (source: Washington State Traffic Records 

Committee). 

The State IT Agency distributes the data into the respective receiving agency systems, including 

the transportation, licensing, courts, and law enforcement agencies. Inside of SECTOR there is 

an administrator-only view as a part of the “back office”—an area of the application that can be 

used to troubleshoot the application by viewing all of the data collected. The Department of 

Licensing (DOL), Administrative office of the Courts (AOC), and WSDOT also have access to 

this view.(10) 

TRIBAL JURISDICTION AND DATA SHARING ISSUES 

One of the primary concerns for some Tribes is who will have access to their data. The SECTOR 

Service Level Agreement is a contract between the client, such as a Tribe, and the WSP. The 

contract outlines each agency’s roles and responsibilities and what the system will provide. 

Despite the contract only existing between the Tribe and the WSP, the DOL, AOC, and WSDOT 

users still have access to the “back office” data. 

One example of this access issue relates to ticket processing within SECTOR. If the AOC has a 

citation in one court but that citation is not within the aggregate system, the AOC administrator 

can log into the back office and retrieve the information on the ticket. The unrestricted access 

and ability for that AOC administrator to view all of the data concerns some Tribes who are 

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apprehensive about misuse and the resulting adverse consequences at a community or 

governmental level for Tribal members and the jurisdiction of the Sovereign Nations’ justice 

systems. 

The eTRIP committee is working to mitigate these concerns. In order to address the data sharing 

concerns, WSP needs to modify the architecture of SECTOR to prevent AOC, WSDOT, and 

DOL from viewing the Tribal data in the Back Office. There is already a process in place for 

some agencies to bypass AOC access to certain data elements. For agencies that use SECTOR 

but still use paper citations, they may submit select citation and infraction data through SECTOR. 

Regarding collision reports, general users request collision reports through the Washington 

State Patrol Collision Records Division (CRD). CRD uses a separate tool to redact certain 

collision report elements. This process is completely separate and unrelated to SECTOR and 

in the Back Office, SECTOR Administrators can still view the full collision report information, 

including personally identifying information. 

TRIBAL SECTOR IMPLEMENTATION 

Despite the data sharing concerns, many Tribes within the State have chosen to adopt 

SECTOR. The first outreach for the SECTOR application was during the Northwestern Tribal 

Technical Assistance Conference in Chehalis, Washington. WSP engaged the Tribes by 

providing example benefits of the software along with demonstrations in a practical setting. 

WSP used demonstration units to show the entire process for creating and submitting crash 

reports and traffic tickets using SECTOR. WSP also explained how agencies can use the data 

collected and how it is linked to other jurisdictions. Many Tribal representatives viewed this 

meeting as a necessary outreach opportunity given the history of mistrust with the State.(11) 

An association of eight Tribal Police Chiefs, called Northwest Association of Tribal Officers, 

had a subsequent meeting to discuss the use of SECTOR. Two of the primary SECTOR 

concerns among the Police Chiefs were the data collected and cost. WSP explained that the 

application does have measures in place for SECTOR users to extract sensitive information 

from the data view within the application. The Police Chiefs also had concerns about the 

SECTOR form unique codes identifying Tribal members as they did not want this information 

publicly available. While the software was not perfect, WSP explained the process and steps in 

place to request changes and continually improve the system. 

The second concern of the Police Chiefs was cost. SECTOR is free for law enforcement 

agencies within Washington State. Even with necessary hardware upgrades, the overall price 

was significantly lower than other available options. (11) 

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The Police Chiefs left the Tribal Police Chief Association meeting and reported the SECTOR 

information to their respective Tribes. For many Tribes, having the Police Chief suggest using 

SECTOR to the Tribal council was an effective mechanism to convince the Tribe to adopt the 

software. The following are the experiences of two of the Tribes, the Lummi Nation and the 

Puyallup Tribe, who were early adopters of the SECTOR software. 

Lummi Nation Experience 

For the Lummi Nation, the transportation planners learned about SECTOR during the 

Northwestern Tribal Technical Assistance Conference and were convinced of the benefits. 

However, the buy-in from the Police Chief was a primary factor in the Tribe’s adoption of 

SECTOR. The Tribal Council trusted that the Police Chief was attentive to the best interests of 

the Tribe both in terms of additional data analysis capacity and risks involved with data sharing. 

In order to use SECTOR, the Tribe had to perform vehicle equipment upgrades, such as new 

radios in order to allow for remote data uploads. While the hardware upgrades were 

underway, the Tribe was able to utilize SECTOR to collect the information at scene (including 

the GPS coordinates) and then upload the data to the server once the officer was back in the 

office. The upgrades have been on-going but were completed during summer 2016. Despite 

these upgrades, the free software still made the adoption of SECTOR a cost effective option for 

the law enforcement agency to convert from paper to electronic records. 

SECTOR has provided the Lummi Nation with additional and better quality data, thereby 

allowing the Tribal Transportation Planners to better identify and understand transportation 

concerns. Additionally, since the Federal government ties funding to data, an increase in data 

quality has allowed the Tribe to be more competitive for funding. The Lummi Nation has been 

an outspoken advocate of SECTOR and has been willing to try new ideas in order to improve 

their data analysis and sharing capabilities. 

The Tribe still has concerns regarding the potential for data mining by other agencies, 

specifically related to AOC’s ability to view Tribal ticket data. The Lummi Nation is working 

with both the State and other Tribes to make sure SECTOR data sharing capabilities had better 

represent the Tribes’ interests. These concerns have not been acted upon as no other agency 

has performed data mining on Lummi Nation data, and have not inhibited their use of SECTOR. 

Puyallup Tribe 

The Puyallup Tribe was another early adopter of SECTOR and has been using the software for 

approximately eight years. The urban, checkerboard nature of the reservation requires a higher 

level of collaboration between Tribal and non-Tribal agencies. The Puyallup Tribe experienced a 

number of benefits from implementing SECTOR, including the ability for Tribal law 

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enforcement to efficiently file reports and the ability to easily share information in the same 

format as other agencies with whom they collaborate. Regardless of whether a Tribal or nonTribal law enforcement officer issues a citation or files a collision report, the information is 

available to the users of the system thus providing agencies with a comprehensive 

understanding of transportation safety concerns. 

SECTOR also allows WSP to act as an intermediary agency. Given the checkerboard nature of 

the reservation, differing law enforcement agencies may issue citations for Tribal and non-Tribal 

members alike. The use of SECTOR allows these agencies to share that information with each 

other through one agreement with WSP, rather than having to establish separate agreements 

between each other. 

Another benefit is related to how the Tribe and the City of Tacoma address emergency 

response. While the Tribe does have its own law enforcement agency, it does not have fire or 

paramedic services. The Tribe pays for the portion of Tribal calls that the city responds to. 

Sharing datasets through SECTOR allows the agencies to efficiently determine what portion of 

the calls were to the reservation and subsequently how much Tribe needs to pay for those 

services. 

During the process of adopting SECTOR, there was a learning process for law enforcement 

officers to become accustomed to the new electronic report format. The Puyallup Tribe also 

had some initial concerns regarding Tribal data, particularly the sharing of data with the 

Washington State DOL and AOC. Ultimately, the Tribe determined the risk was low enough to 

adopt SECTOR. 

Integrating crash and citation data has bolstered the Tribes ability to identify safety concerns 

but has also had an unintended consequence of making tribal-only data analysis more difficult. 

Due to the urban and checkerboard nature of the Puyallup reservation, it can be difficult for the 

Tribe to determine how to effectively administer transportation and public health safety efforts 

that specifically target their Tribal community. 

Overall SECTOR has been useful to the Puyallup Tribe; it has improved the efficiency and ability 

of the Tribe and neighboring agencies to work together and share information.(12) 

ADDRESSING TRIBAL DATA SHARING CONCERNS 

In an effort to address the Tribal data sharing concerns, the SECTOR Support Team 

recommended modifying the SECTOR architecture to allow for two changes: 

1)	 Create an AOC Bypass option to prevent selected tickets from being transmitted to the 

AOC. 

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2) Modify the architecture to prevent non-granted agencies from viewing selected tickets 

in the SECTOR Back Office. 

These recommended changes may increase SECTOR participation from other Tribes as well. 

In addition to these enhancement projects. Future projects include: 

 Supervisor Review.
 

 Transfer of Records.
 

 Prosecutor Routing.
 

 Automating law table updates for municipalities and Tribal Nations (this project is
 

complete and will go into production in January 2017). 

RESULTS 

Overall, the Tribes that have adopted SECTOR have experienced an increase in efficiency in 

law enforcement submission of tickets and collision reports. Additionally, the increased data 

sharing and analysis capabilities have proven to be effective in analyzing and diagnosing 

transportation concerns and funding transportation improvements. 

BENEFITS 

Some of the positive measures that the State and Tribes have taken to improving data sharing 

and analysis capabilities include: 

 WSP outreach to all law enforcement agencies throughout the State. 

 Demonstrated the usefulness of eTRIP/SECTOR to both Tribal Transportation Planners 

and the Tribal Chiefs of Police. 

 Flexibility in software design so that necessary changes are adopted. 

NEXT STEPS 

Tribes would like to have the ability to extract Tribal data from the larger dataset to 

understand the issues specifically facing Tribal members. 

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REFERENCES 

The following resources were consulted in development of this case study: 

1.	 Washington Traffic Safety Commission. Tribal Program. [Online] [Cited: November 15,
 

2016.] http://wtsc.wa.gov/programs-priorities/tribes/.
 

2.	 Washington State and Tribal Data Sharing Partnerships – M.J. Haught. Telephone Interview. 

March 21, 2016. 

3.	 NASCIO Information Communications Technology (ITC) Innovations Award Nomination. 

Statewide Electronic Collision & Ticket Online Records (SECTOR). [Online] [Cited: 

November 15, 2016.] 

http://www.nascio.org/portals/0/awards/nominations2009/2009/2009WA8-

NASCIO%20AWARD%20INFORMATION%202009%20for%20SECTOR%20Final.pdf. 

4.	 Washington State Target Zero. Target Zero - Washington State Strategic Highway Safety 

Plan 2016. [Online] [Cited: November 15, 2016.] http://targetzero.com/. 

5.	 Washington Traffic Safety Commission Tribal Traffic Safety Advisory Board. Materials.
 

[Online] [Cited: November 15, 2016.] http://wtsc.wa.gov/resources/materials/.
 

6.	 Washington Association of Sheriffs and Police Chiefs. SECTOR Training and Information.
 

[Online] [Cited: November 18, 2016.] http://www.waspc.org/sector-training-information.
 

7.	 Washington Traffic Records Committee. About the Traffic Records Committee. [Online] 

[Cited: November 10, 2016.] http://trafficrecords.wa.gov/about-trc/. 

8.	 Washington Traffic Records Committee. eTRIP Projects. [Online] [Cited: November 10,
 

2016.] http://trafficrecords.wa.gov/business/current-projects/etrip-projects/
 

9.	 Washington State Traffic Records Committee. SECTOR Overview. [Online] [Cited:
 

November 10, 2016.] http://trafficrecords.wa.gov/etrip-program/etrip-program/overview/.
 

10. Washington State and Tribal Data Sharing Partnerships – Debbie Peterman. Telephone
 

Interview. June 15, 2016.
 

11. Washington State and Tribal Data Sharing Partnerships – Kirk Vinnish. Telephone
 

Interview. June 21, 2016.
 

12. Washington State and Tribal Data Sharing Partnerships – Andrew Strobel. Telephone
 

Interview. June 17, 2016.
 

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AGENCY CONTACT INFORMATION
 

MJ Haught (Retired) 

Tribal Program Manager 

mjhaught@wtsc.wa.gov 

(360) 725-9879 

Washington Traffic Safety Commission 

621 8th Ave SE, Suite 409 

Olympia, WA 98501 

Debbie Peterman 

SECTOR System Administrator 

Debbie.Peterman@wsp.wa.gov 

(360) 596-4976 | Ext. 13976 

Washington State Patrol 

Kirk Vinish 

Planning Director 

KirkV@lummi-nsn.gov 

(360) 312-2340 

Lummi Nation 

Planning Department 

2665 Kwina Road 

Bellingham, WA 98226 

Andrew Strobel 

Transportation Planner 

Andrew.Strobel@PuyallupTribe.com 

(253) 573-7879 

Puyallup Tribe of Indians 

3009 East Portland Ave. 

Tacoma, WA 98404 

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