Existing law regulates the operation of recreational off-highway motor vehicles on lands, other than a highway, that are open and accessible to the public. Existing law generally prohibits a motor vehicle from being driven upon a highway unless it is registered. However, existing law authorizes off-highway motor vehicles that are issued identification plates or devices to cross highways in certain situations, including, among others, a peace officer operating an off-highway motor vehicle in an emergency response situation.

This bill would expand the above-described provision to additionally authorize first responders, as defined, to operate off-highway motor vehicles in an emergency response situation. The bill would also authorize peace officers and first responders to operate off-highway motor vehicles upon a highway, at a distance not to exceed 5 miles, for the purpose of accessing off-highway recreational areas or locations of patrol, within jurisdictions that have adopted a policy or plan for the operation of those off-highway motor vehicles pursuant to the provisions described below. The bill would require peace officers and first responders operating off-highway motor vehicles pursuant to these provisions to comply with the terms and requirements of the policy or plan adopted by the applicable local authority.

Existing law prohibits a local authority from enacting or enforcing an ordinance on matters covered by the Vehicle Code unless expressly authorized by the Vehicle Code. Existing law authorizes local authorities to adopt rules and regulations by ordinance or resolution regarding specified matters.

This bill would authorize a local authority to regulate the operation of off-highway motor vehicles subject to identification by peace officers and first responders upon highways within the local authoritys jurisdiction while performing official duties subject to specified requirements. Among those requirements, the bill would require a local authority, after public review, to adopt a policy or plan for the operation of off-highway motor vehicles by peace officers and first responders while performing official duties and to make the policy or plan available to the public on its internet website. The bill would also require the policy or plan to include, among other things, a requirement that off-highway motor vehicles may only be operated upon a highway for up to 5 miles for the purpose of accessing an off-highway recreational area or a location of patrol.

Existing law regulates the operation of recreational off-highway motor vehicles on lands, other than a highway, that are open and accessible to the public. Existing law generally prohibits a motor vehicle from being driven upon a highway unless it is registered. However, existing law authorizes off-highway motor vehicles that are issued identification plates or devices to cross highways in certain situations, including, among others, a peace officer operating an off-highway motor vehicle in an emergency response situation.

This bill would expand the above-described provision to additionally authorize first responders, as defined, to operate off-highway motor vehicles in an emergency response situation. The bill would also authorize peace officers and first responders to operate off-highway motor vehicles upon a highway, at a distance not to exceed 5 miles, for the purpose of accessing off-highway recreational areas or locations of patrol, within jurisdictions that have adopted a policy or plan for the operation of those off-highway motor vehicles pursuant to the provisions described below. The bill would require peace officers and first responders operating off-highway motor vehicles pursuant to these provisions to comply with the terms and requirements of the policy or plan adopted by the applicable local authority.

Existing law prohibits a local authority from enacting or enforcing an ordinance on matters covered by the Vehicle Code unless expressly authorized by the Vehicle Code. Existing law authorizes local authorities to adopt rules and regulations by ordinance or resolution regarding specified matters.

This bill would authorize a local authority to regulate the operation of off-highway motor vehicles subject to identification by peace officers and first responders upon highways within the local authoritys jurisdiction while performing official duties subject to specified requirements. Among those requirements, the bill would require a local authority, after public review, to adopt a policy or plan for the operation of off-highway motor vehicles by peace officers and first responders while performing official duties and to make the policy or plan available to the public on its internet website. The bill would also require the policy or plan to include, among other things, a requirement that off-highway motor vehicles may only be operated upon a highway for up to 5 miles for the purpose of accessing an off-highway recreational area or a location of patrol.

Existing law regulates the operation of recreational off-highway motor vehicles on lands, other than a highway, that are open and accessible to the public. Existing law generally prohibits a motor vehicle from being driven upon a highway unless it is registered. However, existing law authorizes off-highway motor vehicles that are issued identification plates or devices to cross highways in certain situations, including, among others, a peace officer operating an off-highway motor vehicle in an emergency response situation.

This bill would expand the above-described provision to additionally authorize first responders, as defined, to operate off-highway motor vehicles in an emergency response situation. The bill would also authorize peace officers and first responders to operate off-highway motor vehicles upon a highway, at a distance not to exceed 5 miles, for the purpose of accessing off-highway recreational areas or locations of patrol, within jurisdictions that have adopted a policy or plan for the operation of those off-highway motor vehicles pursuant to the provisions described below. The bill would require peace officers and first responders operating off-highway motor vehicles pursuant to these provisions to comply with the terms and requirements of the policy or plan adopted by the applicable local authority.

Existing law prohibits a local authority from enacting or enforcing an ordinance on matters covered by the Vehicle Code unless expressly authorized by the Vehicle Code. Existing law authorizes local authorities to adopt rules and regulations by ordinance or resolution regarding specified matters.

This bill would authorize a local authority to regulate the operation of off-highway motor vehicles subject to identification by peace officers and first responders upon highways within the local authoritys jurisdiction while performing official duties subject to specified requirements. Among those requirements, the bill would require a local authority, after public review, to adopt a policy or plan for the operation of off-highway motor vehicles by peace officers and first responders while performing official duties and to make the policy or plan available to the public on its internet website. The bill would also require the policy or plan to include, among other things, a requirement that off-highway motor vehicles may only be operated upon a highway for up to 5 miles for the purpose of accessing an off-highway recreational area or a location of patrol.

Existing law regulates the operation of recreational off-highway motor vehicles on lands, other than a highway, that are open and accessible to the public. Existing law, among other things, prohibits a person from operating a recreational off-highway vehicle on lands with a passenger, unless the passenger, while seated upright with their back against the seatback, can grasp the occupant handhold with the seatbelt and shoulder belt or safety harness properly fastened. Existing law generally prohibits a motor vehicle from being driven upon a highway unless it is registered. However, existing law authorizes off-highway motor vehicles that are issued identification plates or devices to cross highways in certain situations, including, among others, a peace officer operating an off-highway motor vehicle in an emergency response situation.

Existing law regulates the operation of recreational off-highway vehicles on lands, other than a highway, that are open and accessible to the public. Existing law, among other things, prohibits a person from operating a recreational off-highway vehicle on lands with a passenger, unless the passenger, while seated upright with their back against the seatback, can grasp the occupant handhold with the seatbelt and shoulder belt or safety harness properly fastened.

This bill would exempt from these requirements peace officers or first responders operating a recreational off-highway vehicle in the course of their duties.

CONCURRENCE IN SENATE AMENDMENTS

CSA1 Bill Id:AB 2453

Author:(Michelle Rodriguez and Davies)

As Amended Ver:May 28, 2026

Majority vote

SUMMARY

Authorizes a first responder to operate an off-highway motor vehicle (OHV) on a highway in an emergency response situation, and authorizes peace officers and first responders to operate OHVs on highways while performing official duties at a distance not to exceed five miles in order to access an off-highway operational area or location of patrol. Specifically, this bill:

1. Authorizes a first responder to operate an OHV on highway in an emergency response situation.
2. Authorizes a peace officer and first responder to operate an OHV on a highway while performing official duties subject to the following conditions:
3. An OHV may only be operated or driven on highway for up to five miles for purposes of accessing an off-highway operational area or location of patrol;
4. An applicable local authority must adopt a policy or plan, subject to public review, for the use of OHVs, and include the following elements:
   1. A description of the activities or locations for which the local authority seeks to authorize operation of OHVs and the approximate timeframe or duration of the authorization.
   2. A description of any training, certification, or safety equipment that will be required by the local authority to ensure the safety of the public, including drivers and passengers.

Expressly authorizes a local authority to regulate the operation of an OHV by peace officers and first responders while performing official duties subject to the requirements above.

Senate Amendments

Add co-authors and make technical and non-substantive changes.

COMMENTS

OHVs are vehicles designed to be operated off-highway and can generally be categorized into three groups: all-terrain vehicles (ATVs), recreational off-road vehicles (ROVs), or utility terrain vehicles (UTVs). ATVs have three or more tires, a straddle seat for the operator, and handlebars for steering control. ROVs and UTVs have four or more tires, non-straddle or ″side-by-side″ seating, and automotive-type controls for steering, throttle, and braking (i.e., a steering wheel and pedals). UTVs are generally equipped with larger cargo beds and can be retrofitted for law enforcement purposes by installing emergency lighting, sirens, logos, communications devices, and cab enclosures.

Law enforcement increasingly relies on OHVs. Law enforcement first begun using OHVs in the 1970s given their ability to access remote areas inaccessible by foot or patrol cars. During the 1980s and 90s, a large OHV manufacturer begun producing militarized ATVs for the U.S. Army and other military services. This same manufacturer started making OHVs for law enforcement, fire departments and rescue operations in 2018 and others followed. Marketing materials for these vehicles generally describe their enhanced ability to provide access in rugged terrain or congested urban settings, flexibility given their compact size, and reduced operations and maintenance costs compared to a regular patrol vehicle. Law enforcement or first responders have used OHVs for search and rescue, crowd and event control, remote patrols (e.g., public lands, beaches), and medical or emergency incident response.

Current law authorizes peace officers to operate an OHV on highway, without limitation, when responding to an emergency. The Cities of Carlsbad and Ontario, co-sponsors of this bill, assert that the above authority should be expanded to include first responders and for purposes other than emergencies where traditional patrol vehicle access is constrained or where trailering an OHV becomes impractical. These include beach patrols, incident response at parks or open space areas, concerts, sporting events, street fairs or similar events closed to vehicle traffic.

The City of Ontario writes, ″Police officers may use recreational off-road vehicles as a practical tool to support special events, non-proactive enforcement operations, and respond to emergent situations in those spaces. These vehicles allow officers to safely and efficiently navigate areas not easily accessible by standard patrol units—such as parks, trails, large venues, and pedestrian-heavy environments—enhancing visibility, response capability, and public safety. Their use is intended to facilitate community engagement, provide rapid assistance, and support event logistics, rather than to conduct routine traffic enforcement or proactive policing activities.″

According to the City of Carlsbad. ″AB 2453 closes a restrictive gap in our current law by ensuring that all first responders—not just peace officers—can legally operate UTVs and other OHVs on public highways when seconds matter most. By granting our fire, search and rescue, and medical teams the same flexibility already afforded to law enforcement, we are equipping them with the tools necessary to save lives in difficult terrain. This bill is a vital update to our vehicle code that prioritizes public safety and ensures our heroes can do their jobs without unnecessary legal hurdles.″

Reasonable limitations requested by the California Highway Patrol (CHP). Despite the merits of this bill, the CHP has requested reasonable limitations on the use of OHVs on a highway because they are typically not designed or warrantied by manufacturers to be operated on streets or roads. The City of Carlsbad indicates that UTV manufacturers do not currently provide vehicle identification numbers or VINs necessary for registration with the DMV because UTVs are not designed to be operated on-road.

As such, it is prudent to discourage over-reliance on OHVs for traditional patrol purposes. Both Carlsbad and Ontario indicate that their intended use of OHVs is not for routine traffic enforcement or traditional policing activities. This bill limits on-highway OHV use by peace officers and first responders to up to five miles for purposes of accessing an off-highway operational area or location of patrol. Moreover, the relevant local authority must first adopt a policy or plan, subject to public review, describing their intended use and the safety, training or other measures the local authority will undertake to ensure the safety of drivers, occupants and the public.

According to the Author

″California’s first responders and peace officers are frequently required to operate recreational off-highway vehicles (ROHVs) in emergency, rescue, and public safety situations where strict compliance with existing passenger safety requirements may not be feasible and operation restrictions prohibit travel of any distance on surface streets and thoroughfares thereby inhibiting response efficacy and efficiency. Current law was designed for recreational use and does not account for the urgent, unpredictable conditions under which these professionals must act to protect life and property. This bill provides a narrow and practical exemption to ensure that first responders and peace officers can perform their duties effectively without being constrained by provisions that were not intended for first responder operations or urgent situations. By clarifying that these requirements do not apply in the course of official duties, the bill promotes public safety while recognizing the unique demands placed on those who respond in critical situations.″

Arguments in Support

According to the City of Ontario ″Police officers may use recreational off-road vehicles as a practical tool to support special events, non-proactive enforcement operations, and respond to emergent situations in those spaces. These vehicles allow officers to safely and efficiently navigate areas not easily accessible by standard patrol units—such as parks, trails, large venues, and pedestrian-heavy environments—enhancing visibility, response capability, and public safety. Their use is intended to facilitate community engagement, provide rapid assistance, and support event logistics, rather than to conduct routine traffic enforcement or proactive policing activities.″

Arguments in Opposition

None on file.

FISCAL COMMENTS

According to the Assembly Appropriations Committee, minor state costs, if any

VOTES:

ASM TRANSPORTATION: 16-0-0

YES: Wilson, Davies, Aguiar-Curry, Ahrens, Carrillo, Harabedian, Hart, Hoover, Jackson, Lackey, Macedo, Papan, Ransom, Rogers, Sharp-Collins, Ward

ASM APPROPRIATIONS: 14-0-1

YES: Wicks, Hoover, Arambula, Calderon, Caloza, Dixon, Fong, Mark González, Krell, Pacheco, Pellerin, Solache, Ta, Tangipa

ABS, ABST OR NV: Muratsuchi

ASSEMBLY FLOOR: 66-0-14

YES: Addis, Aguiar-Curry, Ahrens, Alanis, Alvarez, Ávila Farías, Bains, Bauer-Kahan, Bennett, Berman, Boerner, Bryan, Calderon, Caloza, Carrillo, Castillo, Connolly, Davies, DeMaio, Dixon, Elhawary, Ellis, Fong, Gabriel, Garcia, Gipson, Jeff Gonzalez, Mark González, Hadwick, Haney, Harabedian, Jackson, Johnson, Kalra, Krell, Lackey, Lee, Lowenthal, Macedo, McKinnor, Muratsuchi, Nguyen, Ortega, Pacheco, Patel, Patterson, Pellerin, Quirk-Silva, Ramos, Ransom, Michelle Rodriguez, Rogers, Blanca Rubio, Sanchez, Schiavo, Schultz, Sharp- Collins, Solache, Soria, Stefani, Ta, Tangipa, Ward, Wilson, Zbur, Rivas

ABS, ABST OR NV: Arambula, Bonta, Chen, Flora, Gallagher, Hart, Hoover, Irwin, Papan, Petrie-Norris, Celeste Rodriguez, Valencia, Wallis, Wicks

SENATE FLOOR: 39-0-1

YES: Allen, Archuleta, Arreguín, Ashby, Becker, Blakespear, Cabaldon, Caballero, Cervantes, Choi, Cortese, Dahle, Durazo, Gonzalez, Grayson, Grove, Hurtado, Jones, Laird, Limón, McGuire, McNerney, Menjivar, Niello, Ochoa Bogh, Padilla, Pérez, Reyes, Richardson, Rubio, Seyarto, Smallwood-Cuevas, Stern, Strickland, Umberg, Valladares, Wahab, Weber Pierson, Wiener

ABS, ABST OR NV: Alvarado-Gil

UPDATED

VERSION: May 28, 2026

CONSULTANT: Dan Chia / TRANS. / (916) 319-2093 FN: 0003430

 CONSENT  

Bill No: AB 2453

Author: Michelle Rodriguez (D) and Davies (R), et al.

Amended: 5/28/26 in Senate

Vote: 21

SENATE TRANSPORTATION COMMITTEE: 13-0, 6/9/26

AYES: Cortese, Strickland, Archuleta, Arreguín, Blakespear, Dahle, Gonzalez, Grayson, Menjivar, Richardson, Seyarto, Valladares, Wiener

SENATE NATURAL RES. & WATER COMMITTEE: 7-0, 7/1/26

AYES: Becker, Seyarto, Allen, Cabaldon, Grove, Laird, Stern

SENATE APPROPRIATIONS COMMITTEE: Senate Rule 28.8

ASSEMBLY FLOOR: 66-0, 5/7/26 (Consent) - See last page for vote

SUBJECT: Vehicles: off-highway motor vehicles

SOURCE: City of Carlsbad

DIGEST:

This bill authorizes a first responder to operate an off-highway motor vehicle (OHV) on a highway under certain conditions, as specified.

ANALYSIS:

Existing law:

1. Defines an “off-highway motor vehicle” to be:
   1. A motorcycle, snowmobile, sand/dune buggy, all-terrain vehicle, jeep, “recreational” OHV, off-highway electric motorcycle;
   2. Any vehicle that is operated off-highway; and,
   3. An OHV operated by a non-resident of the state.
      
2. Defines highway as “a way or place of whatever nature, publicly maintained and open to the use of the public for purposes of vehicular travel. Highway includes street.”
3. Defines, in part, a peace officer to be a sheriff, undersheriff, or deputy sheriff of a county, a chief of police of a city or chief, director, or chief executive officer of a consolidated municipal public safety agency that performs police functions, a police officer, employed in that capacity and appointed by the chief of police or chief, director, or chief executive of a public safety agency, of a city, a chief of police, or police officer of a district.
4. Defines a first responder to mean an employee of the state or a local public agency who provides emergency response services, including a peace officer, a firefighter, a paramedic, an emergency medical technician or a public safety dispatcher or public safety telecommunicator.
   
5. Authorizes a peace officer to operate an OHV on highway only during an emergency response situation.
6. Establishes OHV rules and regulations of the “off-road” including those governing registration, license, speed, safety, age, unauthorized access, reckless driving, compliance with, for example, signage, environmental protection, and anti-littering requirements (e.g., Vehicle Code §§38280-38321). Any operator of an OHV must be able to reach and operate all controls necessary to safely operate the OHV.

This bill:

1. Authorizes a first responder to operate an OHV on highway in an emergency response situation.
2. Authorizes a peace officer and first responder to operate an OHV on a highway while performing official duties if an OHV is only operated or driven on highway for up to five miles for purposes of accessing an off-highway operational area or location of patrol.
3. Requires a local authority to adopt a policy or plan, subject to public review, for the use of OHVs for the abovementioned purposes and include the following elements:
   1. A description of the activities or locations for which the local authority seeks to authorize operation of OHVs and the approximate timeframe or duration of the authorization.
   2. A description of any training, certification, or safety equipment that will be required by the local authority to ensure the safety of the public, including drivers and passengers.
      
4. Expressly authorizes a local authority to regulate the operation of an OHV by peace officers and first responders while performing official duties subject to the requirements above.

Comments

Purpose of the bill. According to the author, "California’s first responders and peace officers are frequently required to operate l off-highway vehicles (OHVs) in emergency, rescue, and public safety situations where regular vehicles cannot go. However, getting these OHVs to the locations where they are needed is often difficult because existing passenger‑safety requirements may be infeasible in these contexts, and current operational restrictions prohibit OHVs from traveling any distance on surface streets or thoroughfares, thereby limiting response effectiveness and efficiency. Current law was designed for recreational use and does not account for the urgent, unpredictable conditions under which these professionals must act to protect life and property. This bill provides a narrow and practical exemption to ensure that first responders and peace officers can perform their duties effectively without being constrained by provisions that were not intended for first responder operations or urgent situations. By clarifying that these requirements do not apply in the course of official duties, the bill promotes public safety while recognizing the unique demands placed on those who respond in critical situations.”

What is an OHV? OHVs are vehicles designed to be operated off-highway and can generally be categorized into three groups: all-terrain vehicles (ATVs), recreational off-road vehicles (ROVs), or utility terrain vehicles (UTVs). ATVs have three or more tires, a straddle seat for the operator, and handlebars for steering control. ROVs and UTVs have four or more tires, non-straddle or “side-by-side” seating, and automotive-type controls for steering, throttle, and braking (i.e., a steering wheel and pedals). UTVs are generally equipped with larger cargo beds and can be retrofitted for law enforcement purposes by installing emergency lighting, sirens, logos, communications devices, and cab enclosures.

While OHVs are not required to be registered with the Department of Motor Vehicles (DMV) in the same fashion as standard on-road vehicles, OHVs are required to be registered with DMV and display a DMV-issued ID plate or sticker when operating on public land with registration renewal every two years.

Law enforcement and OHVs. Over the past several decades, law enforcement entities have increasingly utilized OHVs for their day-to-day operations. Manufacturers of OHVs advertise these specialized vehicles can be utilized for supporting patrols of communities, facilities, and land (i.e. parking enforcement, park or beach patrol) or providing safety and security during large events (i.e. special events, parades, marathons, and festivals). Generally, law enforcement or first responders have also used OHVs for search and rescue, remote patrols (i.e. trails), and medical or emergency incident response. While current law allows for peace officers to operate an OHV on a highway during an emergency situation, the provisions specified in this bill expand the scope of OHV usage to all first responders (as defined by state law) and would allow OHV usage on a highway for both emergency purposes and non-emergency purposes, for up to five miles, to reach an off-highway recreational area or a location of patrol.

Supporters of this measure include a number of municipalities which assert the provisions specified in this bill will enhance local entities’ ability to protect public safety without imposing any new costs or regulatory burdens on local government.

FISCAL EFFECT: Appropriation: No Fiscal Com.: Yes Local: No

SUPPORT: (Verified 8/3/26)

City of Carlsbad (source)

City of Ontario
Orange County Fire Authority
San Bernardino County Sheriff's Department

OPPOSITION: (Verified 8/3/26)

None received

ASSEMBLY FLOOR: 66-0, 5/7/26

AYES: Addis, Aguiar-Curry, Ahrens, Alanis, Alvarez, Ávila Farías, Bains, Bauer-Kahan, Bennett, Berman, Boerner, Bryan, Calderon, Caloza, Carrillo, Castillo, Connolly, Davies, DeMaio, Dixon, Elhawary, Ellis, Fong, Gabriel, Garcia, Gipson, Jeff Gonzalez, Mark González, Hadwick, Haney, Harabedian, Jackson, Johnson, Kalra, Krell, Lackey, Lee, Lowenthal, Macedo, McKinnor, Muratsuchi, Nguyen, Ortega, Pacheco, Patel, Patterson, Pellerin, Quirk-Silva, Ramos, Ransom, Michelle Rodriguez, Rogers, Blanca Rubio, Sanchez, Schiavo, Schultz, Sharp-Collins, Solache, Soria, Stefani, Ta, Tangipa, Ward, Wilson, Zbur, Rivas

NO VOTE RECORDED: Arambula, Bonta, Chen, Flora, Gallagher, Hart, Hoover, Irwin, Papan, Petrie-Norris, Celeste Rodriguez, Valencia, Wallis, Wicks

Prepared by: Manny Leon / TRANS. / (916) 651-4121

8/5/26 15:04:49

**** END ****

SENATE COMMITTEE ON NATURAL RESOURCES AND WATER

Senator Josh Becker, Chair

2025 - 2026 Regular

Bill No: AB Hearing Date: July 1, 2026

Subject: Vehicles: off-highway motor vehicles

SUMMARY

This bill would provide for the operation of off-highway motor vehicles by peace officers or first responders on highways intended for regular vehicular traffic, under certain conditions.

BACKGROUND AND EXISTING LAW

Off-highway vehicles (OHVs). OHVs are vehicles designed to be operated off-highway and can generally be categorized into three groups: all-terrain vehicles (ATVs), recreational off-road vehicles (ROVs), or utility terrain vehicles (UTVs). ATVs have three or more tires, a straddle seat for the operator, and handlebars for steering control. ROVs and UTVs have four or more tires, non-straddle or “side-by-side” seating, and automotive-type controls for steering, throttle, and braking (i.e., a steering wheel and pedals). UTVs are generally equipped with larger cargo beds and can be retrofitted for law enforcement purposes by installing emergency lighting, sirens, logos, communications devices, and cab enclosures.

While OHVs are not required to be registered with the Department of Motor Vehicles (DMV) in the same fashion as standard on-road vehicles, OHVs are required to be registered with DMV and display a DMV-issued ID plate or sticker when operating on public land, with registration renewal every two years.

Law enforcement use of OHVs. Law enforcement first begun using OHVs in the 1970s, given their ability to access remote areas inaccessible by foot or patrol cars. During the 1980s and 90s, a large OHV manufacturer begun producing militarized ATVs for the U.S. Army and other military services. This same manufacturer started making OHVs for law enforcement, fire departments, and rescue operations in 2018 and others followed. Marketing materials for these vehicles generally describe their enhanced ability to provide access in rugged terrain or congested urban settings, flexibility given their compact size, and reduced operations and maintenance costs compared to a regular patrol vehicle. Law enforcement and first responders have used OHVs for search and rescue, crowd and event control, remote patrols (e.g., public lands, beaches), and medical or emergency incident response.

Existing Law:

1. Defines an “off-highway motor vehicle” to be:
   1. A motorcycle, snowmobile, sand/dune buggy, all-terrain vehicle, jeep, “recreational” OHV, off-highway electric motorcycle;
   2. Any vehicle that is operated off-highway; and,
   3. An OHV operated by a non-resident of the state (Vehicle Code (VEH) §§38010, 38012).
      
2. Defines highway as “a way or place of whatever nature, publicly maintained and open to the use of the public for purposes of vehicular travel. Highway includes street.” (VEH §360)
3. Authorizes a peace officer to operate an OHV on highway only during an emergency response situation. (VEH §38025)
4. Establishes OHV rules and regulations of the “off-road” including those governing registration, license, speed, safety, age, unauthorized access, reckless driving, compliance with, for example, signage, environmental protection, and anti-littering requirements (e.g., VEH §§38280-38321). Any operator of an OHV must be able to reach and operate all controls necessary to safely operate the OHV.

PROPOSED LAW

This bill would:

1. Authorize local authorities to adopt rules or regulations relating to the operation of OHV by peace officers or first responders subject to public review of the regulations, including by posting the regulations on the local authority’s website.
2. Require the policy or plan to include, but be not limited to:
   1. A requirement that off-highway motor vehicles may only be operated on a highway for up to five miles for the purpose of accessing an off-highway recreational area or a location of patrol.
   2. A description of the activities or locations for which the local authority seeks to authorize operation of off-highway motor vehicles pursuant to this subdivision and the approximate timeframe or duration of the authorization.
   3. A description of any training, certification, or safety equipment that will be required by the local authority to ensure the safety of the public, including drivers and passengers.
3. Authorize first responders to operate an OHV upon a highway in an emergency response situation, subject to the following conditions:
   1. The distance traveled on the highway by the off-highway motor vehicle does not exceed five miles.
   2. The purpose of the travel is to access an off-highway recreational area or a location of patrol.
   3. A local authority, as defined, of the jurisdiction in which the off-highway motor vehicle will be operated has adopted a policy or plan for the operation of off-highway motor vehicles by peace officers or first responders while performing official duties, as specified.
   4. A peace officer or first responder operating an off-highway motor vehicle pursuant to these provisions shall comply with the terms and requirements of the policy or plan adopted by the applicable local authority.

ARGUMENTS IN SUPPORT

According to the author, “California’s first responders and peace officers are frequently required to operate off-highway vehicles (OHVs) in emergency, rescue, and public safety situations where regular vehicles cannot go. However, getting these OHVs to the locations where they are needed is often difficult because existing passenger safety requirements may be infeasible in these contexts, and current operational restrictions prohibit OHVs from traveling any distance on surface streets or thoroughfares, thereby limiting response effectiveness and efficiency. Current law was designed for recreational use and does not account for the urgent, unpredictable conditions under which these professionals must act to protect life and property. This bill provides a narrow and practical exemption to ensure that first responders and peace officers can perform their duties effectively without being constrained by provisions that were not intended for first responder operations or urgent situations. By clarifying that these requirements do not apply in the course of official duties, the bill promotes public safety while recognizing the unique demands placed on those who respond in critical situations.”

ARGUMENTS IN OPPOSITION

None received.

COMMENTS

Double referral. This bill was referred to this Committee and the Committee on Transportation. It was heard in Senate Transportation on June 9 and passed with a vote of 13-0. Comments under the jurisdiction of the Transportation Committee are included here for completeness and context only.

Addressing practical uses of OHV. Current law authorizes peace officers to operate an OHV on highway, without limitation, when responding to an emergency. The Cities of Carlsbad and Ontario assert that the above authority should be expanded to include first responders and for purposes other than emergencies where traditional patrol vehicle access is constrained or where trailering an OHV becomes impractical. These include beach patrols, incident response at parks or open space areas, concerts, sporting events, street fairs, or similar events closed to vehicle traffic.

Writing in support, and as sponsors of the bill, the City of Carlsbad states:

Under current law, only peace officers are permitted to operate off-highway vehicles on highways during an emergency response situation. While this authority is critical, it does not extend to the many other first responders — including firefighters, paramedics, lifeguards and emergency medical technicians — who are often called upon to respond to emergencies in areas where off-highway vehicles are the most practical and effective means of reaching those in need.

The City of Carlsbad encompasses terrain where traditional emergency vehicles are unable to quickly access an incident. Off-highway vehicles allow first responders to navigate beaches, narrow trails, unpaved roads, and other challenging terrain far more rapidly than conventional apparatus. In time-sensitive emergencies such as wildfires, search-and-rescue operations, and medical calls in remote areas or difficult terrain, the ability to lawfully drive these vehicles on a highway — even briefly — to reach an incident can mean the difference between life and death.

AB 2453 closes a meaningful gap in existing law by ensuring that all qualified first responders have the same operational flexibility currently afforded to peace officers.

Related Legislation

SB 637 (Knight), Chapter 594, Statutes of 2003, authorized peace officers to operate OHVs on highway in an emergency response situation.

SUGGESTED AMENDMENTS: none

SUPPORT

City of Carlsbad (sponsor)

City of Ontario

OPPOSITION

None Received

-- END --

SENATE COMMITTEE ON TRANSPORTATION

Senator Dave Cortese, Chair

2025 - 2026 Regular

Bill No: Hearing Date: 6/9/2026

SUBJECT:

DIGEST: This bill authorizes a first responder to operate an off-highway motor vehicle (OHV) on a highway under certain conditions, as specified.

ANALYSIS:

Existing law:

1. Defines an “off-highway motor vehicle” to be:
   1. A motorcycle, snowmobile, sand/dune buggy, all-terrain vehicle, jeep, “recreational” OHV, off-highway electric motorcycle;
   2. Any vehicle that is operated off-highway; and,
   3. An OHV operated by a non-resident of the state.
      
2. Defines highway as “a way or place of whatever nature, publicly maintained and open to the use of the public for purposes of vehicular travel. Highway includes street.”
3. Defines, in part, a peace officer to be a sheriff, undersheriff, or deputy sheriff of a county, a chief of police of a city or chief, director, or chief executive officer of a consolidated municipal public safety agency that performs police functions, a police officer, employed in that capacity and appointed by the chief of police or chief, director, or chief executive of a public safety agency, of a city, a chief of police, or police officer of a district.
4. Defines a first responder to mean an employee of the state or a local public agency who provides emergency response services, including a peace officer, a firefighter, a paramedic, an emergency medical technician or a public safety dispatcher or public safety telecommunicator.
   
5. Authorizes a peace officer to operate an OHV on highway only during an emergency response situation.
6. Establishes OHV rules and regulations of the “off-road” including those governing registration, license, speed, safety, age, unauthorized access, reckless driving, compliance with, for example, signage, environmental protection, and anti-littering requirements (e.g., Vehicle Code §§38280-38321). Any operator of an OHV must be able to reach and operate all controls necessary to safely operate the OHV.

This bill:

1. Authorizes a first responder to operate an OHV on highway in an emergency response situation.
2. Authorizes a peace officer and first responder to operate an OHV on a highway while performing official duties if an OHV is only operated or driven on highway for up to five miles for purposes of accessing an off-highway operational area or location of patrol.
3. Requires a local authority to adopt a policy or plan, subject to public review, for the use of OHVs for the abovementioned purposes and include the following elements:
   1. A description of the activities or locations for which the local authority seeks to authorize operation of OHVs and the approximate timeframe or duration of the authorization.
   2. A description of any training, certification, or safety equipment that will be required by the local authority to ensure the safety of the public, including drivers and passengers.
      
4. Expressly authorizes a local authority to regulate the operation of an OHV by peace officers and first responders while performing official duties subject to the requirements above.

COMMENTS:

1. Purpose of the bill. According to the author, "California’s first responders and peace officers are frequently required to operate l off-highway vehicles (OHVs) in emergency, rescue, and public safety situations where regular vehicles cannot go. However, getting these OHVs to the locations where they are needed is often difficult because existing passenger‑safety requirements may be infeasible in these contexts, and current operational restrictions prohibit OHVs from traveling any distance on surface streets or thoroughfares, thereby limiting response effectiveness and efficiency. Current law was designed for recreational use and does not account for the urgent, unpredictable conditions under which these professionals must act to protect life and property. This bill provides a narrow and practical exemption to ensure that first responders and peace officers can perform their duties effectively without being constrained by provisions that were not intended for first responder operations or urgent situations. By clarifying that these requirements do not apply in the course of official duties, the bill promotes public safety while recognizing the unique demands placed on those who respond in critical situations.”
2. What is an OHV? OHVs are vehicles designed to be operated off-highway and can generally be categorized into three groups: all-terrain vehicles (ATVs), recreational off-road vehicles (ROVs), or utility terrain vehicles (UTVs). ATVs have three or more tires, a straddle seat for the operator, and handlebars for steering control. ROVs and UTVs have four or more tires, non-straddle or “side-by-side” seating, and automotive-type controls for steering, throttle, and braking (i.e., a steering wheel and pedals). UTVs are generally equipped with larger cargo beds and can be retrofitted for law enforcement purposes by installing emergency lighting, sirens, logos, communications devices, and cab enclosures.

While OHVs are not required to be registered with the Department of Motor Vehicles (DMV) in the same fashion as standard on-road vehicles, OHVs are required to be registered with DMV and display a DMV-issued ID plate or sticker when operating on public land with registration renewal every two years.

1. Law enforcement and OHVs. Over the past several decades, law enforcement entities have increasingly utilized OHVs for their day-to-day operations. Manufacturers of OHVs advertise these specialized vehicles can be utilized for supporting patrols of communities, facilities, and land (i.e. parking enforcement, park or beach patrol) or providing safety and security during large events (i.e. special events, parades, marathons, and festivals). Generally, law enforcement or first responders have also used OHVs for search and rescue, remote patrols (i.e. trails), and medical or emergency incident response. While current law allows for peace officers to operate an OHV on a highway during an emergency situation, the provisions specified in this bill expand the scope of OHV usage to all first responders (as defined by state law) and would allow OHV usage on a highway for both emergency purposes and non-emergency purposes, for up to five miles, to reach an off-highway recreational area or a location of patrol.

Supporters of this measure include a number of municipalities which assert the provisions specified in this bill will enhance local entities’ ability to protect public safety without imposing any new costs or regulatory burdens on local government.

1. Double referral. This bill has been double referred to the Senate Natural Resources and Water Committee.

Related/previous Legislation:

SB 637 (Knight, Chapter 594, Statutes of 2003) – Authorized peace officers to operate OHVs on highway in an emergency response situation.

FISCAL EFFECT: Appropriation: Fiscal Com.: Local:

POSITIONS: (Communicated to the committee before noon on Wednesday,

June 3, 2026.)

SUPPORT:

City of Carlsbad (Sponsor)

City of Ontario
San Bernardino County Sheriff's Department

OPPOSITION:

None received

-- END --

Date of Hearing: April 29, 2026

ASSEMBLY COMMITTEE ON APPROPRIATIONS

Buffy Wicks, Chair

ABPCA Bill Id:AB 2453

Author:(Michelle Rodriguez) – As Amended Ver:March 26, 2026

Urgency: No State Mandated Local Program: No Reimbursable: No

SUMMARY:

This bill (1) amends existing law, which authorizes a peace officer to operate or drive an off-highway vehicle (OHV) on a highway in an emergency response situation, to also allow a first responder to operate or drive an OHV on a highway in an emergency response situation and (2) establishes conditions according to which a peace officer or first responder may operate or drive an OHV on a highway while performing official duties

Specifically, this bill:

1. Authorizes a local authority to adopt rules and regulations by ordinance or resolution regarding the use of OHVs by peace officers or first responders on highways within the local authority’s jurisdiction while performing official duties, provided the local authority adopts a policy or plan governing such use, subject to certain requirements, including that such an OHV be operated on a highway for up to five miles for the purpose of accessing an OHV recreational area or location of patrol, and allows peace officer or first responder to operate or drive an OHV on a highway in accordance with such a policy or plan.
2. Amends existing law to allow a first responder to operate or drive an OHV on a highway in an emergency response situation.

FISCAL EFFECT:

Minor state costs, if any.

COMMENTS:

Current law allows a peace officer to operate or drive an OHV on a highway in an emergency response situation; however, current law makes no such provision for a first responder. And the law says nothing about the authority of a peace officer or a first responder to operate an OHV on a highway while performing official duties. This bill addresses both issues and is supported by both the City of Carlsbad and the San Bernardino County Sherrif’ Department, which describes the bill as “important clarity and operational flexibility for the use of off-highway motor vehicles (OHVs) by peace officers and first responders in the performance of their official duties.

Analysis Prepared by: Jay Dickenson / APPR. / (916) 319-2081

Date of Hearing: April 6, 2026

ASSEMBLY COMMITTEE ON TRANSPORTATION

Lori D. Wilson, Chair

ABPCA Bill Id:AB 2453 (

Author:Michelle Rodriguez) – As Amended Ver:March 26, 2026

SUBJECT: Vehicles: off-highway motor vehicles

SUMMARY: Authorizes a first responder to operate an off-highway motor vehicle (OHV) on a highway in an emergency response situation, and authorizes peace officers and first responders to operate OHVs on highways while performing official duties at a distance not to exceed five miles in order to access an off-highway operational area or location of patrol. Specifically, this bill:

1. Authorizes a first responder to operate an OHV on highway in an emergency response situation.
   
2. Authorizes a peace officer and first responder to operate an OHV on a highway while performing official duties subject to the following conditions:
   
3. An OHV may only be operated or driven on highway for up to five miles for purposes of accessing an off-highway operational area or location of patrol;
4. An applicable local authority must adopt a policy or plan, subject to public review, for the use of OHVs, and include the following elements:
   1. A description of the activities or locations for which the local authority seeks to authorize operation of OHVs and the approximate timeframe or duration of the authorization.
   2. A description of any training, certification, or safety equipment that will be required by the local authority to ensure the safety of the public, including drivers and passengers.
      
5. Expressly authorizes a local authority to regulate the operation of an OHV by peace officers and first responders while performing official duties subject to the requirements above.
   

EXISTING LAW:

1. Defines an off-highway motor vehicle to be:
   1. A motorcycle, snowmobile, sand/dune buggy, all-terrain vehicle, jeep, “recreational” OHV, off-highway electric motorcycle;
   2. Any vehicle that is operated off-highway, and;
   3. An OHV operated by a non-resident of the state. (Vehicle Code §§38006, 38012)
      
2. Defines highway as “a way or place of whatever nature, publicly maintained and open to the use of the public for purposes of vehicular travel. Highway includes street”. (VEH §360)
3. Defines, in part, a peace officer to be a sheriff, undersheriff, or deputy sheriff of a county, a chief of police of a city or chief, director, or chief executive officer of a consolidated municipal public safety agency that performs police functions, a police officer, employed in that capacity and appointed by the chief of police or chief, director, or chief executive of a public safety agency, of a city, a chief of police, or police officer of a district. (Penal Code §830.1).\
4. Defines a first responder to mean an employee of the state or a local public agency who provides emergency response services, including a peace officer, a firefighter, a paramedic, an emergency medical technician or a public safety dispatcher or public safety telecommunicator. (Government Code §8562)
   
5. Authorizes a peace officer to operate an OHV on highway only during an emergency response situation. (Vehicle Code §38025)
6. Establishes OHV rules and regulations of the “off-road” including those governing registration, license, speed, safety, age, unauthorized access, reckless driving, compliance with, for example, signage, environmental protection, and anti-littering requirements (e.g., Vehicle Code §§38280-38321). Any operator of an OHV must be able to reach and operate all controls necessary to safely operate the OHV.

FISCAL EFFECT: Unknown

COMMENTS: OHVs are vehicles designed to be operated off-highway and can generally be categorized into three groups: all-terrain vehicles (ATVs), recreational off-road vehicles (ROVs), or utility terrain vehicles (UTVs). ATVs have three or more tires, a straddle seat for the operator, and handlebars for steering control. ROVs and UTVs have four or more tires, non-straddle or “side-by-side” seating, and automotive-type controls for steering, throttle, and braking (i.e., a steering wheel and pedals). UTVs are generally equipped with larger cargo beds and can be retrofitted for law enforcement purposes by installing emergency lighting, sirens, logos, communications devices, and cab enclosures.

Law enforcement increasingly relies on OHVs. Law enforcement first begun using OHVs in the 1970s given their ability to access remote areas inaccessible by foot or patrol cars. During the 1980s and 90s, a large OHV manufacturer begun producing militarized ATVs for the U.S. Army and other military services. This same manufacturer started making OHVs for law enforcement, fire departments and rescue operations in 2018 and others followed. Marketing materials for these vehicles generally describe their enhanced ability to provide access in rugged terrain or congested urban settings, flexibility given their compact size, and reduced operations and maintenance costs compared to a regular patrol vehicle. Law enforcement or first responders have used OHVs for search and rescue, crowd and event control, remote patrols (e.g., public lands, beaches), and medical or emergency incident response.

Current law authorizes peace officers to operate an OHV on highway, without limitation, when responding to an emergency. The Cities of Carlsbad and Ontario, co-sponsors of this bill, assert that the above authority should be expanded to include first responders and for purposes other than emergencies where traditional patrol vehicle access is constrained or where trailering an OHV becomes impractical. These include beach patrols, incident response at parks or open space areas, concerts, sporting events, street fairs or similar events closed to vehicle traffic.

The City of Ontario writes, “Police officers may use recreational off-road vehicles as a practical tool to support special events, non-proactive enforcement operations, and respond to emergent situations in those spaces. These vehicles allow officers to safely and efficiently navigate areas not easily accessible by standard patrol units—such as parks, trails, large venues, and pedestrian-heavy environments—enhancing visibility, response capability, and public safety. Their use is intended to facilitate community engagement, provide rapid assistance, and support event logistics, rather than to conduct routine traffic enforcement or proactive policing activities.”

According to the City of Carlsbad. “AB 1909 closes a restrictive gap in our current law by ensuring that all first responders—not just peace officers—can legally operate UTVs and other OHVs on public highways when seconds matter most. By granting our fire, search and rescue, and medical teams the same flexibility already afforded to law enforcement, we are equipping them with the tools necessary to save lives in difficult terrain. This bill is a vital update to our vehicle code that prioritizes public safety and ensures our heroes can do their jobs without unnecessary legal hurdles.”

Reasonable limitations requested by the California Highway Patrol (CHP). Despite the merits of this bill, the CHP has requested reasonable limitations on the use of OHVs on a highway because they are typically not designed or warrantied by manufacturers to be operated on streets or roads. The City of Carlsbad indicates that UTV manufacturers do not currently provide vehicle identification numbers or VINs necessary for registration with the DMV because UTVs are not designed to be operated on-road.

As such, it is prudent to discourage over-reliance on OHVs for traditional patrol purposes. Both Carlsbad and Ontario indicate that their intended use of OHVs is not for routine traffic enforcement or traditional policing activities. This bill limits on-highway OHV use by peace officers and first responders to up to five miles for purposes of accessing an off-highway operational area or location of patrol. Moreover, the relevant local authority must first adopt a policy or plan, subject to public review, describing their intended use and the safety, training or other measures the local authority will undertake to ensure the safety of drivers, occupants and the public.

Previous Legislation. SB 637 (Knight), Chapter 594, Statutes of 2003, authorized peace officers to operate OHVs on highway in an emergency response situation.

REGISTERED SUPPORT / OPPOSITION:

Support

San Bernadino County Sheriff’s Department

Opposition

None on file

Analysis Prepared by: Dan Chia / TRANS. / (916) 319-2093