POLICE DEPARTMENT AIR SUPPORT MODEL PROPOSAL
| This proposal was prepared in February 1995 by Robert A. Gardner, CPP for the Police Department of a prominent Southern California City. The document was never brought before the City Council for approval. Leadership of the City involved does not believe that Police Aviation is appropriate for the City. Consequently, the Police Department never presented the proposal. This proposal was modified slightly for publication in the Virtual Security Library. Modifications were limited to changes necessary to protect the identity of the City. |
Introduction
It's sometimes said that the only solution to crime may be to put "a cop on every corner." That makes sense. If every time a criminal looked up he saw a police officer, it is almost certain that few crimes would occur.
Of course we can't put "a cop of every corner." There are too many corners and police officers are expensive. So we settle for the next best thing. We put an officer in a patrol car and hope that while patrolling the city, he or she is occasionally on that figurative "corner" when someone bent on crime looks up.
What if we took that very same patrol car and placed it not at a corner, but 500 feet above it?
Now, criminals for a mile or so in every direction could look up, all at the same time, and see that one patrol car. Wouldn't we in effect have our "cop on every corner?" How many crime could be prevented? One police helicopter - a flying patrol car - can be more effective as a visual deterrent to crime than dozens of earth bound patrol cars driving the streets.
The following document is a model proposal for a police aviation program. It has as its foundation, staff reports and supporting documentation from more than a dozen police air support operations throughout California.
This proposal has been tailored to accurately reflect the specific interests and needs of one particular City. The demographic facts and financial figures contained within were accurate and current at the time the proposal was written in February 1995. Implementation options are geared towards providing the City with the most cost effective program possible.
This model could have just as easily been adapted to meet the needs of any small to medium sized city. Anyone involved in exploring the feasibility of a police air support program is encouraged to add this document to their research materials.
Background And Overview
During the last several months, this City has experienced a severe rash of vehicle thefts and vehicle burglaries in the late evening and early morning hours. According to data from the Crime Analysis Unit, there have been a total of 374 vehicle thefts and 64 attempted vehicle thefts in the community during 1994. The value of the vehicles lost in these thefts is $2,175,500. There have also been 508 vehicle burglaries and 23 attempted vehicle burglaries during the same period.
Investigative effort to-date by the Detective Unit has revealed that a majority of the stolen vehicles are immediately driven into the San Fernando Valley and other locations throughout the Los Angeles Metropolitan area. In an effort to combat this problem, the Police Department has implemented a variety of conventional strategies, primarily focusing on the deployment of additional manpower during the hours when most vehicle crimes occur. One of the problems in attempting to combat this issue is the suspects' ability to readily flee into the San Fernando Valley.
It has been known for some time that most auto thefts in the City are committed by relatively sophisticated and well organized criminals from outside the community. This fact was reenforced during recent interviews with two vehicle theft suspects. Both were arrested after vehicle pursuits in two unrelated vehicle thefts. Both said that the City is viewed as "easy pickings" for several reasons:
Although vehicle theft is considered a non-violent property crime, there is an ever present and very real risk of serious harm to officers who unknowingly stop stolen vehicles. That risk is magnified when officers must engage in high speed pursuits of these vehicles. The immediate availability of a helicopter substantially reduces the potential for injury and confrontation in these situations.
Based on recent events, and in recognition of the continuing need to provide the most effective police service possible to the community, the Police Department must re-think its enforcement strategies and take a more aggressive and innovative approach. Accordingly, staff has researched the options available for implementing an air support program to enhance Police Department effectiveness and community safety in the City.
This City, like most cities in the nation, is confronting the specter of a decreasing supply of funds with which to fill personnel shortages. Yet, crimes like vehicle theft, robbery, burglary, and gang violence continue to plague the community. These crimes can be, and are being, impacted greatly by Air Support Programs in other cities throughout the country. Some of these cities are significantly smaller in population and size than this City.
Staff research has shown that in every instance where an adequately funded, properly managed air support program was instituted, it met or exceeded all performance expectations. Some Southern California cities that have proven the value and cost effectiveness of operating their own law enforcement aircraft include Pasadena, Glendale, Burbank, Baldwin Park, El Monte, Ontario, Riverside, Long Beach, Compton, Los Angeles, Pomona, Newport Beach, Costa Mesa, Anaheim, Lakewood, Santa Monica, Perris, San Diego and Huntington Beach. Ventura, Los Angeles, Orange, San Diego, San Bernardino, Riverside and Kern counties also operate air support units. In recent history only one Southern California city, Oceanside, has completely discontinued an air support program. That program was a victim of political in-fighting unrelated to the effectiveness of the program. In addition to the above, Santa Ana, Torrance, Montebello and Fresno are currently developing air support programs.
The City has reached the point where alternatives must be explored to keep pace with our ever changing community. The Police Department cannot afford to add manpower without augmenting traditional policing methodology with contemporary technology and equipment. Air Support for ground-based law enforcement resources can dramatically increase the safety of officers working in the streets, the effectiveness of the police response in fighting crime, and consequently, the security and well-being of the community.
Burglaries and robberies ( both residential and commercial), and vehicle thefts are persistent problems. Traffic congestion is increasing to such a degree that metering for freeway access within the City limits will be operational in July 1995, and gang related incidents have become all too frequent. The Police Department has a compelling need to implement an Air Support Program. This program will utilize a helicopter to reduce the number of crimes occurring and improve response time to calls for service. Air Support is a cost-effective solution that will impact crime and enhance the safety of our residents and police officers.
The use of helicopters for police patrol began 28 years ago in Lakewood, California with the "Sky Knight" program. Flying 10 hours per day, this program reduced Part I crimes by 8.8% during the first year of operation. This test program, which was monitored by internal as well as independent evaluations, illustrated the direct impact of police helicopters on crime. "Sky Knight" and subsequent programs have been so successful that the use of helicopters has become a common tool for effective law enforcement in urban and suburban areas today.
This City will shortly be one of only a few only cities in the greater Los Angeles area, with a population over 90,000, that does not operate its own aircraft for public safety activities. In fact, several cities with populations under 90,000 are operating air support programs. In times of extreme need, the Police Department must contact either the County Sheriff's Department, or on rare occasions the Los Angeles Police Department and request the assistance of their helicopters. While they are willing to assist, oftentimes they are unable to because of workload considerations and their responsibility to their own jurisdictions . This is particularly true during major incidents affecting multiple jurisdictions. In the case of the County Sheriff's Department, weather limitations also frequently affect their ability to respond.
The City of Compton is as an excellent example of Air Support effectiveness. The results of implementing their own helicopter program were dramatic. Compton, operating a single aircraft approximately 5 hours per day, reduced Part I crimes by 9% during the first quarter of 1988. The program was so successful that they expanded their Air Support Unit to three aircraft after the first year of operation. The crime reduction in Compton is comparable to that realized by the "Sky Knight" program 22 years earlier.
The Los Angeles Police Department has acquired several new helicopters to impact crime in their city. In 1987, the Los Angeles County Sheriff's Department made a major commitment to airborne law enforcement with the purchase of ten new state-of-the-art helicopters for crime suppression. Burbank, Glendale and Pasadena operate multi-helicopter programs. Pomona, El Monte and Baldwin Park successfully operate single helicopter programs. The County Sheriff's Department has acquired a new MD530F helicopter for use in a limited deployment patrol program and the largest city in this County is currently exploring the possibility of implementing a helicopter program. More than 50 other Southern California cities participate in joint air support programs.
These jurisdictions are now pushing their crime into neighboring communities. This City is beginning to feel the effects of that crime migration. Without new approaches such as air support, it will be very difficult to economically and effectively deter future criminal activity in our community.
An Air Support Program offers a cost effective means of impacting crime and public safety while fostering the community's sense of security. An Air Support Program will:
A helicopter has 30 times more observation capability than a ground based vehicle according to a report by the Schweizer Aircraft Corporation. It is not handicapped by traffic and can cover the same area, without loss of effectiveness, 15 times faster. Patrol car surveillance on a city street is limited to a small area approximately 100 feet wide and 400 feet ahead. While Air Support Programs cannot replace patrol officers, their effect as a "force multiplier" enhances the impact of existing patrol units and can reduce or eliminate the need to field more officers. The Los Angeles Police Department estimates that one helicopter provides a patrol and response capability equivalent to eight to ten patrol cars.
Air support gives ground officers an overwhelming advantage over their criminal opponents. The potential for rapid response and a "birds eye" view of any situation bestows a degree of superiority that few criminals can overcome.
Demand For An Air Support Program
As the size and population of the City have increased, the Police Department has taken an aggressive approach against crime. Almost daily, officers face life threatening situations where they must apprehend dangerous felony suspects. An added safety measure would be a helicopter orbiting the scene to observe the actions of suspects and protect the ground officers. The presence of a police helicopter increases suspect vulnerability and officer confidence. The helicopter is first on scene 90% of the time and can assess the situation from the air, positioning officers accordingly. With a helicopter on-scene, suspects are less likely to fight with officers and more apt to surrender peacefully. Suspects hiding in yards, on rooftops, in trees, or behind buildings and fences can be easily detected by a helicopter. Ground units can then be made aware of the suspect's location and directed to them.
Currently, the Police Department primarily requests the County Sheriff's Air Support Unit to assist in handling significant situations. Because these incidents are occurring more frequently, the high cost to operate the Sheriff's helicopters and the unacceptably high noise levels of the Sheriff's large helicopters, requires that the Department exercise restraint in calling for assistance. When we do call, there are generally no helicopters immediately available to assist. At other times the helicopters are completely unavailable for a variety of reasons. During calendar year 1994, the Sheriff's Department committed 3.2 flight hours to the City. The time included 1.2 hours for SWAT training, 1.7 hours for a missing person search, and .3 hours for a robbery response.
In the face of escalating demands for police service, the burden rests heavily on the City and the Police Department to not only protect residents and officers, but to improve the efficiency in which this critical service is provided. The implementation of an Air Support Program would expedite the fulfillment of this obligation to the community.
Crime Detection And Prevention
The importance of helicopters as a crime prevention tool cannot be over emphasized. By its mere presence above a location, it serves as a psychological deterrent to criminals. Anyone contemplating a criminal act who becomes aware of a police helicopter overhead is almost certain to abandon the idea, at least temporarily. The result is a crime that is not, and perhaps will never be, committed.
A study of helicopter effectiveness done by the Institute for Police Studies at California State University, Long Beach for the City of Riverside states, in part:
A police helicopter is an effective means to patrol the inner portions of our City's parks, either alone or in conjunction with the Department's bicycle program. These areas are often dark and isolated enough to be an attractive location for gang and narcotic activities. They also provide a large area of concealment for fleeing suspects. It is well known, particularly among juveniles, that officers can not see into the remote areas of most of our parks. On the occasions where officers do drive, ride or walk through the park, they are visible in plenty of time for suspects to hide their contraband or flee.
Undeveloped areas such as hillsides and open space, or construction sites are also potential areas for illegal dumping of hazardous waste. Theft of tools and materials or vandalism of equipment at construction sites are also ongoing problems. A helicopter could patrol these areas many times each shift to monitor activity and provide a visual deterrent.
Although actual times may vary, an airborne helicopter's response time to any location in the City is estimated to be 3 minutes or less depending on its location when the call is received. The response time of a ground based unit (marked or otherwise) can easily exceed 8 to 10 minutes or more in traffic. Peak traffic flow has grown to the point that emergency vehicles can find it difficult to penetrate gridlocked streets and intersections. If response times increase, instead of preventing a crime from taking place, or interrupting it before its completion, the only thing officers will be able to do is take a crime report.
According to the Schweizer Aircraft report:
The helicopter's faster travel time means fewer suspects will escape. It also means that ground units may be canceled by the Air Support crew when these units are not needed. This results in ground units being free to answer other calls for service. Even when ground units are unavailable to immediately respond to a call, the helicopter may still be able to contain the scene until a ground unit is free.
Travel time by helicopter from the east end of the City to the west end, (a distance of about 10 miles), takes just over five minutes. Even traveling at potentially dangerous high speeds, a patrol car driving on surface streets, could take nearly twice that long in traffic to cover the same distance. A helicopter on patrol over the City would, in most instances, be able to respond to calls in under three minutes.
In the early 1970's, the City of Los Angeles participated in an extensive study conducted by the National Aeronautics and Space Administration (NASA) and the Jet Propulsion Laboratory (JPL) concerning helicopter use in public safety. This study found that there is a bonus to the deterrent effect of a police helicopter. The study found that:
Due to the helicopter's unique observation capabilities, it can be esed as an aerial platform and communications center in a variety of situations. It can function as an observation platform and communications hub during emergency responses, searches, hostage and/or barricaded suspect situations, and police pursuits. The helicopter observer can hold a point of view as he or she passes an object 15 times longer than a ground unit and can survey a 7 mile area from an altitude of 500 feet. The helicopter crew can also view 30 times more area than a ground unit.
One of the most difficult calls for police to handle tactically is a search for a lost child. These searches can be not only time and labor intensive but also time critical. A helicopter is capable of searching one square mile in about two minutes, greatly reducing the number of ground personnel necessary. When a three year old wanders away in a neighborhood full of unattended swimming pools, every second counts. Laborious house to house searches, facing locked gates and absent homeowners, are extremely frustrating and time consuming. From the air, swimming pools and backyards can be checked with great speed, cutting search time drastically. Agencies using helicopters have reported that many times lost children are located from the air before the first ground unit arrives in the area.
Searches of other kinds are also expedited by the helicopter. Several times a year, police officers are called upon to go into the hills surrounding the City to located missing persons or to locate vehicles that have gone "over the side" of the freeway. With a helicopter, large areas of hillside, deep ravines, and long stretches of freeway can be searched in minutes.
Vehicle Pursuits
During vehicle pursuits the use of a helicopter to maintain visual contact with the suspect vehicle, while also directing ground units, will reduce the number of police vehicles involved. Vehicle pursuits are intrinsically dangerous. When a suspect attempts to evade arrest, police officers must take many chances trying to apprehend them. All too often, pursuits conclude only when the suspect collides with another car or fixed object. With helicopter support, pursuing officers can drive at lower speeds and exercise greater care in negotiating traffic. This is due to the fact that visual contact with the suspect by the ground units is not necessary.
Agencies using helicopters report a reduction in the number and duration of vehicle pursuits. When suspects become aware that they are under aerial surveillance, they frequently stop voluntarily and surrender. A reduction in pursuits will increase the safety of the motoring public and police officers. Fewer pursuits also represent a potential cost saving to the Police Department and the community, and greatly enhance the Department's image in the eyes of the public. Obviously the safety of the public and police officers is the most important consideration. However, the reduction of potential liability is also a valid consideration. When innocent third parties are injured or killed during a pursuit, it is not only an image crisis for the Department; costly litigation is almost assured. It is not an unreasonable speculation that just one damage award by a jury could pay for an Air Support Program for many years.
Vehicle Theft / Vehicle Burglary / Carjacking
The City is currently experiencing serious vehicle theft and vehicle burglary problems. City officers and officers in neighboring cities have been able to recover some of the stolen vehicles, but this usually occurs only after the vehicle has been stripped. Occasionally "in-progress" vehicle crimes are discovered by officers, with more and more of these resulting in dangerous vehicle pursuits. Air Support officers would be able to locate stolen vehicles more readily than ground units and, if the suspects attempted to flee, the vehicle could be followed by the helicopter instead of ground units pursuing. The air crew could then coordinate a safe apprehension of the suspects.
Technology such as the "LOJAC" vehicle locator system is available which would allow helicopters to locate and follow stolen vehicles without the suspect's knowledge. This would lead officers to locations where vehicles are being stripped or to sophisticated "chop shops". The Los Angeles Police Department has measurably reduced the number of vehicles stolen in their city as a result of this technology.
Fire roads and canyons in the hills surrounding the City are sometimes used by car thieves to "dump" stripped vehicles. Without the aid of an aircraft it is almost impossible to locate and recover these vehicles and any associated evidence leading to the thieves.
A relatively new and particularly frightening phenomena is carjacking. This type of violent vehicle theft is a form of robbery with potentially deadly consequences. Occupied vehicles in public places are commandeered by armed criminals and driven away. Fortunate victims are unharmed; the less fortunate may be shot or stabbed or worse. The presence of a police helicopter would serve as a deterrent to these crimes.
Using the crime reduction rates experienced by other cities with air support programs, This City could operate an air support unit for just 11% of the cost of the vehicles stolen each year in the City.
Robbery
Due to the helicopter's speed and aerial vantage point, robbery suspects can be more readily located and apprehended, particularly if an immediate broadcast is given. Several escape routes can be covered simultaneously by the helicopter and the ground units can be positioned using the helicopter as an aerial command post. This tactic increases the apprehension rate of robbery suspects, and decreases risk to citizens. A relatively recent example where a helicopter could have altered the outcome of events is the 1991 Liquor Store robbery/murder. Had a helicopter been available, the chances of the suspects escaping would have been virtually eliminated. This is especially true since the suspect vehicle was immediately engaged in a pursuit by responding officers. A helicopter could have easily contained the termination point of the pursuit and offered both illumination and visual support to ground officers searching for the suspects. As it turned out, the suspects escaped and have not yet been arrested.
A radio tracking system has also caused a dramatic increase in the capture of bank robbery suspects in some California cities. With the assistance of Air Support crews, a tiny transmitter is placed within stacks of money located in participating bank teller's cash drawers. An immediate signal is sent to the helicopter when the money is removed from the drawer. The helicopter is equipped with a small receiver unit which allows the air crew to quickly locate the suspect(s), whether they are on foot, in a vehicle or in a building.
Commercial and Residential Burglary / Prowlers
The helicopter has a profound effect on both the prevention and detection of daytime and nighttime burglaries and prowlers. Helicopters can often identify suspects from the air at night without the use of ground units or the helicopter's searchlight. The helicopter can respond to burglar alarms, burglary in progress and prowler calls faster than ground units and can visually inspect school grounds, car dealerships, construction sites, large commercial areas and residential yards without the assistance of ground units. The helicopter's rapid response means fewer suspects will escape. When a suspect is located, ground units can be directed to the suspect's exact location without exposing officers to unnecessary risk. Even when suspects are not directly observed by air crews, the presence of the helicopter over a scene forces suspect to stay in place. Responding ground officers and K-9 units can then more readily locate the stationary suspect. City Police responded to over 5200 burglary and prowler related calls in 1994. The total value of property stolen in the City in 1994, excluding vehicles, was more than $2,423,800.
Large Gatherings, Gang, And Drug Activity
A helicopter offers the unique capability of rapidly patrolling wide areas, then slowing down and circling locations where large gatherings, gang, and drug activities are occurring. The helicopter can illuminate an area with its powerful spotlight as a deterrent. This alone will normally cause a group to immediately disperse, or it can loiter at a distance to monitor the activity. In either case, the air crews have the option of calling in ground units to detain individuals or facilitate dispersal.
Using the helicopter in this manner gives a sense of satisfaction to citizens who call the Department with a problem requiring police response. The citizen can watch the helicopter arrive and disperse the group within minutes of the telephone call.
Deployment of a helicopter also increases the opportunity to apprehend suspects involved in the drive-by shootings and other violent activities often associated with these gatherings.
Narcotics Interdiction
Experience has shown that the City's proximity to Los Angeles attracts narcotic dealers into and through the City while they conduct their illegal narcotic transactions. Often, the only way to build a case against these individuals is through surveillance. This is a time consuming, labor intensive undertaking. The helicopter is a indispensable tool when it comes to following mobile drug traffickers.
Large scale cultivation of marijuana is a thriving cottage industry in Southern California. Open space such as that which surrounds this City is considered prime territory by clandestine growers. Often, the only means to locate these "grows" is aircraft. The helicopter will allow us to fight the narcotic problem on a new level. It could prove to be one of the Police Department's most cost effective, anti-narcotic tools.
Traffic Management
In recent years, the City has experienced a tremendous increase in the volume of traffic on local streets and highways. In addition, there are several shopping centers and "mini-malls" that operate 365 days a year. This puts a heavy strain on City streets at certain times of the day and even more so during certain times of the year. This congestion severely impacts the speed at which patrol units can respond to emergencies and calls for service. In many cases it also discourages officers from routine patrol on these streets, reducing effective police patrol and visibility in the area it is most often needed.
Throughout the year, the City is host to a number of 5K and 10K walks and runs as well as parades, carnivals, movie locations, street closures and detours. These events can create severe traffic problems. A helicopter will provide the Police Department with an increased ability to effectively manage traffic conditions. Air support officers can evaluate traffic situations quickly and recommend the proper resources to quickly resolve problems. The air unit can also direct emergency vehicles to the most expeditious route around congestion.
Civil Disorders / Public Events
Helicopters facilitate the direction and command of field personnel during civil disorders and public events. It is possible to view an entire event at once and direct necessary personnel to potential problem areas, thus averting congestion or major confrontations. Visual and video taped evidence of events can also be easily obtained from the air for use in prosecution and future tactical planning.
Depending on the nature of the event, a helicopter can provide excellent publicity or serve as an intimidating presence deterring unlawful activity.
The helicopter's public address capability and its high intensity searchlight are additional benefits in crowd situations. They provide a means to illuminate and address large crowds, reducing the anonymity of individuals. This acts as a powerful deterrent to those inciting unlawful action or violence.
An excellent example of the usefulness of helicopters occurred during the recent demonstrations at the Courthouse. To assist in crowd control, the Sheriff's Department deployed its Jetranger helicopter to serve as an aerial command/observation post. A television camera installed in the aircraft gave incident commanders in the City's Emergency Operations center a continuous live view of the activities taking place on the courthouse grounds.
Emergency Response and Resource Delivery
During a disaster or major emergency, the helicopter is unsurpassed for transporting emergency personnel into and throughout the City in a timely manner. In the event of a hazardous materials spill, experts could be brought in immediately to survey and evaluate the situation with a minimum time delay. Damage assessment surveys could be conducted over wide areas of the City in a short period of time and inspections of critical sites such as dams and bridges could be completed in minutes.
The helicopter can also serve as an investigative and management tool permitting aerial reconnaissance and photography. This is a resource which would be available to other City departments such as Planning and Public Works, as needed.
Fire Suppression
Although not generally considered a fire suppression tool, police helicopters are routinely the first to report building and brush fires in their patrol area. Their aerial vantage point permits them to easily see the initial faint traces of smoke and fire. This early discovery often results in saved lives and minimized property damage. The hillsides and grassland areas surrounding the City are particularly vulnerable to fire and present a considerable arson risk. A helicopter would serve as a formidable deterrent to arson since it would be difficult for the arsonist to escape once smoke began to rise.
Public Reaction and Opinion
During incidents where the Sheriff's and other agencies' helicopters have provided assistance to our city, we have had few noise complaints. On occasion, residents have told officers the helicopter made them feel more secure. In fact, based on their observations of other agencies' air units assisting our department, some residents have expressed to staff the belief that they were seeing the City's Air Support Unit and were surprised to learn this was not the case.
Unlike the excessively noisy Vietnam era military transport helicopters flown by the Sheriff's Department, most modern police helicopters are extremely quiet when compared to the ambient noise levels within a city. At an altitude of 500 feet, new generation helicopters are quieter than most trucks and motorcycles. Aside from being more "listener friendly", this allows the air unit to arrive at the scene of an "in-progress" crime without being detected until almost directly overhead, thus enhancing the probability of apprehension of the suspect. This greatly reduces the risk of fleeing suspects precipitating hostage or pursuit situations. With regard to noise, a phenomena noted by some cities operating aircraft was "quiet complaints." In some areas, residents have come to count on the police aircraft being overhead to protect them. When the aircraft was grounded for an extended period, complaints were received regarding the "lack of protection."
The NASA/JPL study conducted in Los Angeles included public opinion polls to assess citizen reaction to the use of helicopters within the community. This study revealed high support for public safety helicopters. The results indicated 89% of the residents and 93% of the businesses polled were in favor of patrol by public safety helicopters. Of the people polled, most stated that they had an increased feeling of security and felt crime was reduced by the presence of air units.
In the study conducted for Riverside, 85% of those surveyed were in favor of the helicopter program.
Similar studies with similar results have been done in a number of other Southern California jurisdictions and it can be reasonably expected that comparable results would occur in this City. Once operational, the Air Support Program would quickly gain public support and acceptance. The helicopter would be a positive factor in promoting the City as a modern, progressive community. This would also allow the City to continue attracting new businesses and industries by demonstrating that crime will not be tolerated.
The Air Support Program would enhance its role in the community with constant interaction between the flight crews and the various community organizations such as Chamber of Commerce, homeowner associations, youth organizations, and other civic groups. Tours of the helicopter unit and demonstrations at public events would be a positive factor in promoting the City's proactive image and public relations.
PROGRAM OVERVIEW
Structure:
The five year structure of the proposed Air Support program is based on the Government Lease/Purchase program payment plan.
The Government Lease Purchase program offers the City the opportunity to acquire a helicopter and operate it at the lowest annual operating cost possible. Cost to acquire the recommended helicopter, an Enstrom F28F-P, under the government lease purchase plan would amount to approximately $67,000 per year for each of the project's five years. At the end of the fifth year the City would own the helicopter after paying the end-of-lease $1.00 buy out charge. A particularly attractive feature of the lease/purchase program is the fact that it can be canceled at any time after the first year. This arrangement is particularly suited to the type of project envisioned for this City. If at the end of Year One, or any subsequent year, a decision is made to discontinue the program, the aircraft can be returned at no further cost to the City. If the project is continued for the full five year period, it can be reasonably expected the aircraft will retain approximately 70% of its original value. Police helicopters typically retain an exceptionally high resale value. The useful life of a police helicopter is eight to ten years. An eight year old aircraft could easily be sold at a price close to its original acquisition cost.
Operational Deployment:
The first year demonstration phase of the project will utilize a single aircraft. This will allow the Police Department to operate the helicopter as many as four days per week, one shift per day. Deployment schedules could coincide with peak crime periods or be determined in response to requests to perform specific missions. The helicopter would be airborne a total of approximately five hours each shift. The crew, when not flying, would be on a ready status. Should an immediate need arise, they could be airborne within minutes of notification. Crews would spend their entire shift either airborne or on a ready status. A possible deployment scheme could make the aircraft available three days per week for patrol purposes. On the fourth day, the aircraft could be available for administrative and support purposes such as surveillance, photo flights, maintenance and training operations. Obviously, there is flexibility to meet any demonstrated operational requirement of the Department. A primary goal during the first phase of the project would be to make the helicopter very visible. This would call for a varied deployment schedule which would expose as much of the community as possible to the aircraft. A comprehensive media and public relations program would be an integral part of the overall program. Because of the high visibility of the program, it will be essential that air unit personnel be capable of functioning not only as pilots and observers but also as Department spokespersons.
In addition to scheduled operations, the helicopter would be available on-call, weather, maintenance and personnel considerations permitting, 24 hours a day, seven days a week for emergencies and unscheduled events.
The goal of the program would be to deploy the helicopter a total of approximately 2,000 hours per year. Of that 2000 hours, half would be actual flight time. The other half would have the aircraft and crew on immediate standby within the City.
A limited deployment demonstration program will offer the Police Department the opportunity to confirm the usefulness of an in- house air support unit without subjecting the City to a large financial commitment. This limited deployment program will establish the viability of an aviation program and provide experience, placing the Department in an excellent position to maintain or expand the program as appropriate.
A drawback of the limited deployment approach is the fact that not all shifts are covered. Critics of this approach maintain that the "half a loaf" approach is a waste of time and money since criminals have only to wait until the aircraft is off duty. This observation is valid albeit somewhat short sighted. The limited nature of the patrol program actually creates a basis for evaluation. Crime occurrence and apprehension rates between the helicopter's on and off duty time can be easily compared. Also the limited nature of the patrol program has no effect on the overall deployment of the aircraft. It is still available for emergencies and special missions. The most important reason for the program however, is not the physical presence of the helicopter at any given time, but rather the highly publicized fact that it is always available as a weapon in the police arsenal. The true deterrent value of the helicopter is the criminal knowing it exists, but never knowing for sure when it will appear overhead. An air support program is also a critically important public relations tool.
A number of successful police aviation programs began with one aircraft. Currently the cities of El Monte, Baldwin Park and Pomona have single aircraft programs. El Monte and Baldwin Park are relatively new to police aviation but Pomona has operated its program utilizing Enstrom helicopters for more than nine years. In the County, the Sheriff's Department is flying a limited patrol program with its new MD530F helicopter.
At the conclusion of the one year demonstration phase, a determination will be made as to the continued viability of the project. Based on that decision, goals and direction will be set for the next phase or the program will be discontinued.
Helicopter Requirements:
In order to meet the program's goal of four day per week, 10 hour per day coverage, one helicopter is required. This will permit limited operations while allowing for most scheduled and some unscheduled maintenance to be completed without restricting the helicopters' availability.
Helicopter Types:
Typical police helicopters are divided into two basic types - turbine powered and piston powered. The turbine helicopter, often referred to as a jet helicopter, offers the ability to carry at least four people at speeds up to 160 MPH. Piston powered helicopters can carry a maximum of three people at speeds up to 112 MPH.
Whereas speed and load capacity are the major advantages of the turbine helicopter, the piston powered helicopter offers the most economical operation in a City such as this one.
Based on extensive research, and flight testing by staff, the following aircraft specifications are recommended. The helicopter should be powered by a turbocharged piston engine and have a small rotor diameter capable of landing safely on City streets if required. The aircraft should be capable of carrying three persons, enabling the Department to perform tactical missions.
In addition, the aircraft should be capable of carrying a searchlight, PA system, and various avionics. It should have a cargo storage area and, as a highly recommended option, a thermal imager to bring operations up to contemporary law enforcement technology.
Of the choices listed above, the Enstrom F28F-P is the best suited to this City's needs. This helicopter offers acceptable speed and carrying capacity for patrol purposes and has a proven track record as a law enforcement aircraft. One user is the City of Pasadena which has operated a highly successful Air Support Program for more than 24 years utilizing Enstrom helicopters as their primary aircraft. Pasadena currently has three Enstrom helicopters and one turbine powered, five passenger Bell Jetranger helicopter in service. It is also now looking to acquire two more turbine helicopters.
Hanger Facility:
Ideally, the helicopter would be hangered at a police heliport within the City. However, during the initial phase of the program, the expenditure necessary to construct a heliport with hanger building may be excessive. There are several General Aviation airports located within approximately 25 air miles of the City and any one of them could provide an acceptable location to base flight operations.
Although the helicopter would be based at a hanger outside the City, during duty hours it would operate from a helipad located within the City. This will ensure rapid response times.
It may be possible to rent a small individual "T" hanger or space in a large commercial or government hanger to house the aircraft when not in service. Preliminary inquiry also indicates that the Sheriff's Department may consider providing space in the county's hanger for a fee at or below current market value for hanger floor space. The County Department of Airports quotes monthly hanger rental rates at $200-$500 per 1,000 square feet. Approximately 1000 square feet of floor space would be required to store the recommended helicopter. As the program is expanded, a permanent heliport with hanger could be constructed at a suitable location in the City.
Maintenance:
Maintenance is a constant, on-going, requirement for helicopters. The Federal Air Regulations (FARs) require that helicopters be serviced by a licensed Airframe and Powerplant mechanic. Some components must be replaced on a "time limited" basis rather than "on condition." While it would be desirable to employ an in-house mechanic, there are factory authorized aircraft mechanics available on a contract basis to provide required maintenance. As with hanger space, it may be possible to contract with the Sheriff's Department for maintenance services.
Insurance:
Although the City is self-insured, the nature of police aviation and the financial investment involved make added insurance coverage a requirement. Because the aviation insurance industry is in a constant state of flux, it is impossible to quote an exact cost for coverage until a policy is actually obtained. However, staff contacts with a number of aviation insurance brokers have provided a basis for an informed estimate of cost.
According to past experience of the brokers contacted, the City could expect to pay between $19,000 and $27,000 per year for the level of coverage required. Exact cost for a policy is determined by the value of the aircraft, limits of liability, and experience of the pilots.
In general, policy rates for programs employing low time pilots (100 to 1,000 flight hours) are about 30%-40% higher than rates for programs employing highly experienced pilots with 200+ hours in the type of aircraft flown. For the amount of coverage required by the City, training a police officer as a pilot would result in a first year premium approximately $8,000 greater than if a high time professional pilot were hired.
While $8,000 is a substantial sum of money, a decision to train pilots in-house versus hiring professional civilian pilots should not be based on insurance costs alone.
Police aviation experts agree that advanced flight experience is necessary to pilot the high performance, complex turbine helicopters commonly used for search and rescue and emergency medical flight operations. However, properly trained and FAA certified police pilots can and do operate lower performance, less complex piston powered helicopters safely and effectively in a patrol environment on a daily basis throughout the country. Experience has shown in nearly every city surveyed, that it is easier and more cost-effective to train a police officer to be a pilot than to train a civilian pilot to adequately function in a law enforcement environment. With a high visibility demonstration program such as the one proposed, it is vitally important that, in addition to flying skills, the pilot have advanced public relations skills with an in-depth knowledge of the City and of Police Department policies and procedures. It is unlikely that a pilot with no local Police Department experience would be able to competently represent the interests of the Department and the City.
Project Options
Option One
Impact On Current Budget: $170,700 Increase
While there is little doubt that a police department aviation program would benefit the City in terms of reduced crime, increased service to residents, and enhanced officer safety, there are several paths which could be followed toward that goal. The first option provides for a City-owned and operated aircraft utilizing existing police department personnel.
Staffing:
Staffing needs for a demonstration Air Support Project are minimal. The Police Department currently has one Sergeant who is a licensed fixed wing pilot and has completed all of the Federal Aviation Administration training required for a rating in helicopters. Total transition training time for certification in a new helicopter should not exceed 25 hours and could be completed within 30 day of delivery of the aircraft. An additional 20-40 hours of advanced pilot training can be anticipated during the first year of the program. Cost for flight training in a Department owned aircraft will be the hourly operating cost of the aircraft plus approximately $35 per hour for a Certified Flight Instructor. All instruction will be through a factory approved, FAA certified flight school. It is important to note that this particular sergeant also has extensive media and public relations experience.
The existence of this already trained sergeant would reduce the initial start-up costs in the form of training expenses by over $10,000. This sergeant, with the addition of one or two observers supplied by the Operations Division would comprise the staff necessary to start operations.
The initial use of a sergeant as both pilot and program coordinator would benefit the City and the program in several ways. Particularly in the start-up phase, it is important to have a project coordinator with media and public relations experience as well as tactical and administrative experience. Duties of the program coordinator extend far beyond simply flying the aircraft. There are a wide variety of planning, scheduling, inter-departmental and external coordination, recordkeeping, maintenance, training, and public relations tasks which must be performed. It is also important to the future of the project that control of the aircraft, particularly during its early months when it is under intense scrutiny, be entrusted to an individual who demonstrated a high level of maturity and responsibility.
As its usefulness is demonstrated, the program could be expanded and additional pilots trained, thus freeing the sergeant for administrative and public relations duties and pilot backup. Additionally, the sergeant could be trained as a Certified Flight Instructor (CFI). This would enable him to train replacement pilots without further cost for outside instruction and also conduct proficiency checks and recurrency training for all pilots.
To begin the program without incurring additional personnel costs during the first year demonstration phase, an existing sergeant's position could be re-allocated within the Department. There are currently three sergeants assigned to the Administrative Services Unit. By consolidating and redistributing responsibilities, one of these positions could be could be made available for reallocation to the Air Support Program. The potential benefits of the Air Support Program to the community would more than offset any organizational hardships caused by the reorganization.
Cost Estimate:
Projected operating costs are based on the number of hours flown annually. At this time a reasonable best case projection would be 1,000 flight hours per year. A typical estimated cost for the first year of a five year project operating an Enstrom F28F-P based on current values is:
Helicopter (Lease/Purchase): $67,000
Aircraft Delivery: $3,500
Crew Safety Equipment & Supplies: $3,000
Pilot Training: $2,200
Hanger Rental @ $500 Mo.: $6,000
Insurance: $27,000
Subtotal: $108,700
Direct Operating Expense @ $62 per flight hour for the first year of operation.*
Subtotal: $62,000
Total Aircraft Related Cost: $170,700
Personnel Costs: (Reallocation of an existing position)
Police Sergeant - Full Time: $81,000
Total First Year Cost: $251,700
* This is a factory provided figure which includes fuel and oil, scheduled and unscheduled maintenance, reserve for spare parts, and reserve for scheduled retirement items.
The above figures are general and can be affected by many variables. A more accurate prediction can be made after various specific requirements of the unit are identified.
Direct operating expense for years two through five would be approximately $80 per flight hour due to scheduled overhauls of engine, turbocharger and gear boxes. As pilot experience increases, insurance rates will drop. After year five, at the completion of the lease/purchase contract, the City would own the aircraft and the cost of the program would drop an additional $67,000 per year.
Option Two
Impact On Current Budget: $230,300 Increase
This option is almost identical to Option One except that it calls for the creation of a new civilian pilot position rather than reallocation of an existing police sergeant position.
Staffing:
Under this option the City would create a new civilian pilot position to fly the helicopter. Because this is a civilian position, a pilot with a minimum of 1000 total hours and 200 hours in Enstrom helicopters is recommended. Since the first year of the project is a demonstration phase which subjects the project to the possibility of cancellation, this position would be classified as temporary.
Compensation rates for private sector helicopter pilots range from $20-$35 per hour. Using these figures, reasonable compensation for a City employed pilot could be calculated at $25 per hour plus benefits for a total of approximately $67,600 per year.
An alternative to creating a new City job classification would be to employ the pilot as an independent contractor. This approach is not recommended since the pilot has no vested interest in the job and no real commitment to the City. Contract pilot turnover can be high with a corresponding loss in program continuity and effectiveness. An additional concern is the fact that a contract pilot may be less likely to subject himself to the command structure and disciplinary procedures of the Police Department.
Since a civilian pilot would have no experience with policies and procedures of the Police Department, it would still be necessary to assign a police supervisor as Project Coordinator. This would require that the supervisor devote at least 500 hours per year to program administration and public relations. This would be in addition to other regularly assigned duties. As with Option One, observers would be assigned on a part time basis from the Operations Division.
A final consideration with civilian pilots is the fact that they have no police powers and in most cases no police experience. Unlike police personnel, they cannot function in other police capacities should the need arise and could not function as a Department spokesperson in a media or public relations setting.
Cost Estimate:
Projected operating costs are based on the number of hours flown annually. At this time a reasonable best case projection would be 1,000 flight hours per year. A typical approximate cost analysis for a the first year of a five year project operating an Enstrom F28F-P based on current values would be:
Helicopter (Lease/Purchase): $67,000
Aircraft Delivery: $3,500
Crew Safety Equipment & Supplies: $3,000
Pilot Evaluation & Training: $2,200
Hanger Rental @ $500 Mo.: $6,000
Insurance (1000 Hr. Pilot): $19,000
Subtotal: $100,700
Direct Operating Expense @ $62 per flight hour for the first year of operation.*
Subtotal: $62,000
Total Aircraft Related Cost: $162,700
Personnel Costs:
Non-Sworn Pilot @ $67,600 per year: $67,600
Police Supervisor @ 500 hrs.per year: $20,000
Subtotal: $87,600
Total First Year Cost: $250,300
* This is a factory provided figure which includes fuel and oil, scheduled and unscheduled maintenance, reserve for spare parts, and reserve for scheduled retirement items.
Direct operating expense for years two through five would be approximately $80 per flight hour due to scheduled overhauls of engine, turbocharger and gear boxes. After year five, at the completion of the lease/purchase contract, the City would own the aircraft and the cost of the program would drop an additional $67,000 per year.
Option Three
Impact On Current Budget: $259,000 Increase
As an alternative to an in-house air support unit, a contract could be let with a qualified private helicopter service vendor. Under the terms of a typical contract, the vendor would provide a predetermined number of flight hours per month on an hourly basis. The hourly rate includes helicopter with pilot and is computed based on the minimum number of flight hours required each month. The current hourly rate for a suitable piston powered helicopter with pilot is between $195 and $250 per flight hour plus $25-$35 per standby hour. Hourly rates for turbine powered helicopters are in the $450-$685 range plus $50-$160 per standby hour. In order to receive the $195 rate, a minimum of 15-20 hours a week would be required. Based on the Option One formula of 1,000 flight hours and 1,000 standby hours per year, the annual cost to contract for helicopter service would be a minimum of $220,000 plus travel time from the vendor's home base. A typical daily shift for an air support unit is 8-10 hours. Of that, approximately five hours is actually spent in the air. The remaining time consists of pre-flight and post-flight activities, administrative time and breaks.
Staffing:
Unlike Options One and Two where the helicopter is under the direct control of the Police Department, Option Three leaves control in the hands of the vendor. Aircraft availability must be scheduled in advance. Emergency call-in or last minute unscheduled events could be difficult to arrange. An important disadvantage of this option is the lack of consistency with regard to pilots. Since they are provided under a contract, it can be anticipated that a number of different pilots may be assigned to the program. This will result in a lack of effectiveness due to their unfamiliarity with the City and police procedures. Each time a new pilot is assigned to fly for the City, the Police Department may be required to conduct a background investigation. This option would require a permanently assigned police officer observer to maintain the continuity necessary for the program to be useful. Also, because the pilot is not a City employee and is available only to fly the aircraft, Option Three does not provide for the staff support necessary to administer a successful air support program. With Option One, that support is an integral component of Program Coordinator/Pilot's regular duties. Under Option Three, this administrative support and its attendant hourly costs are an additional expense. It is estimated that program coordination would require approximately 500 hours per year.
Unlike Option One and Two where a portion of the annual cost can be recovered at the end of the five year period in terms of accrued equity in the aircraft, this is a pure rental with all funds being lost to the City permanently.
Cost Estimate:
Helicopter with non-police pilot:
Hourly Rate (1,200 flight hours per year*): $195
Annual Cost: $234,000
Stand-by time (Per Year):
Contract Pilot @ $25 hour x1000 hours: $25,000
Program Coordination: (Reallocation of existing positions)
Police Supervisor @ 500 hours per year: $20,000
Police Officer - Full Time: $66,000
Subtotal: $111,000
Total First Year Cost: $345,000
* Because the helicopter would be based at the vendor's facility, flight time between that location and the City must be factored into the total. As a result, actual on-station flight time would be reduced as much as one hour per day. This could amount to as much as two hundred hours of unproductive travel time. In order to achieve 1,000 on-site flight hours, 1,200 flight hours must be budgeted.
Option Four
Impact On Current Budget: $153,400 Increase
This option is similar to Option Three but provides for only a minimal level of regularly scheduled helicopter service each week. In order to have any positive crime reduction effect, at least two shifts per week should be flown. This would require that a helicopter be on-station 20 hours per week, ten hours of which being flight time. As with Option Three, a contract could be let with a qualified private helicopter service vendor. Under the terms of a typical contract, the vendor would provide a predetermined number of flight hours per month on an hourly basis. The hourly rate includes helicopter with pilot and is computed based on the minimum number of flight hours required each month. The current hourly rate for a suitable piston powered helicopter with pilot is between $195 and $250 per flight hour plus $25-$35 per standby hour. Hourly rates for turbine powered helicopters are in the $450-$685 range plus $50-$160 per standby hour. Based on a 20 hour per week schedule with 10 hours of flight time, cost for the service would be $225 per flight hour and $25 per standby hour.
Staffing:
Option Four leaves control of the helicopter in the hands of the vendor. Aircraft availability must be scheduled in advance. Emergency call-in or last minute unscheduled events can be difficult . An important disadvantage of this option is the lack of consistency with regard to pilots. Since they are provided under a contract, it can be anticipated that a number of different pilots may be assigned to the program. This will result in a lack of effectiveness due to their unfamiliarity with the City and police procedures. Each time a new pilot is assigned to fly for the City, the Police Department may be required to conduct a background investigation. This option would require a permanently assigned police officer observer to maintain the continuity necessary for the program to be useful. Also, because the pilot is not a City employee and is available only to fly the aircraft, Option Four does not provide for the staff support necessary to administer a successful air support program. With Option One, that support is an integral component of Program Coordinator/Pilot's regular duties. Under Option Four, this administrative support and its attendant hourly costs are an additional expense. It is estimated that program coordination would require approximately 200 hours per year. Because of the limited nature of this option, the public relations value of the program is substantially reduced over that of Option One.
Unlike Option One where a portion of the total annual cost can be recovered at the end of the five year period in terms of accrued equity in the aircraft, this is a pure rental with all funds being lost to the City permanently.
Cost Estimate:
Helicopter with non-police pilot:
Hourly Rate (624 flight hours per year*): $225
Annual Cost: $140,400
Stand-by time (Per Year):
Contract Pilot - 520 Hrs. @ $25 hr.: $13,000
Program Coordination:
Police Supervisor @ 200 hours per year: $7,900
Police Officer @ 1000 hours per year: $30,000
Total First Year Cost: $191,300
* Because the helicopter would be based at the vendor's facility, flight time between that location and the City must be actored into the total. As a result, actual on station flight time would be reduced as much as one hour per day. This could amount to as much as two hundred hours of unproductive travel time. In order to achieve 520 on-site flight hours, 624 flight hours must be budgeted.
Option Five
Impact On Current Budget: None
This is the option the Police Department currently uses. In emergency situations helicopter support is requested from the Sheriff's Department. At the present time, the City is not charged for these emergency responses but this may change as the County continues to struggle with a limited budget. If Sheriff's flight time is billed to the City, the rate would be approximately $537-$685 per flight hour depending on the aircraft used. The Sheriff's Department does not routinely provide preventative patrol to non-contract cities and does not always have aircraft available. Response time is also a consideration. Delays of an hour or more are not uncommon, particularly during late evening and early morning hours. The Sheriff's Department would consider entering into a limited contract for patrol time with their new MD530F helicopter at an hourly rate of $537 per flight hour and $153 per standby hour. Since the helicopter must be available for the entire county, they will not guarantee a set schedule or exclusive coverage during any time period.
For non-emergency operations where helicopter services are required on an irregular or short term basis, the piston powered helicopter with pilot can be obtained from a vendor. The cost for this service is $225-$250 per flight hour. The Police Department has used this option in the past in high profile investigations with good results. However, the short term, incident-based approach provides none of the prevention, apprehension and public relations benefits of an on-going program. The nature of this approach precludes an accurate estimate of cost. Based on past usage, a cost of less than $2,000 per year is estimated.
Total First Year Cost: $2000
Joint Use Programs
A number of jurisdictions in Southern California utilize joint use air support programs. These programs generally take one of two forms. In the most common form, joint use consists of a single jurisdiction owning and operating an aircraft which it provides on a contractual basis to other jurisdictions. Another less common joint use plan shares the total cost of a program between two or more jurisdictions. In either case, for the program to be effective and manageable the involved jurisdictions must be in close proximity and have similar aircraft needs.
Staff has determined that a joint use program is not feasible for this City. There are a number of factors which lead to this decision. The most significant are:
The City is poised for considerable growth is the near future. Projects such as the west end industrial park and the large residential development north of the City add significantly to both the size of the City and the size of the population requiring police services. The helicopter is a modern, cost effective tool for providing the highest possible level of police service.
Formation of a properly funded Air Support Program will:
The availability of a helicopter will reduce vehicle theft and burglary as well as other crime problems in the City. At the present time, the primary strategy to combat any significant crime problem is to assign additional manpower. Having a helicopter available will allow the Department to cut back on the number of officers necessary to combat particular problems. This is especially significant since in many cases, additional manpower can only be assigned on an overtime basis. The saving in overtime costs alone may go a long way toward financing the cost of a helicopter program.
It is anticipated that a comprehensive community awareness program will take place in conjunction with the helicopter program. This awareness program will inform the community about the Air Support program, and reaffirm the City's commitment to maintaining a safe and secure environment for its residents. It will also put the criminal element on notice that the City is serious about preventing crime and willing to commit the necessary resources to ensure that the City is not a safe place to commit crime.
SUMMARY
In its Final Report, the 1989-90 County Grand Jury recommended that the City "Study and consider purchasing or leasing a helicopter to increase police protection by enhancing the Police Department's ability for tracking, detection, maneuverability, apprehension and surveillance."
Staff urges the City Council to act on that recommendation. The pressures of growth and crime migration from adjacent jurisdictions present a real and serious threat to the City's distinction as one of this nation's safest communities.
The City has an opportunity to once again demonstrate its leadership role in this County. Augmenting law enforcement with this powerful technological resource advances the Police Department toward its goals of crime reduction, improved quality of police service delivery and enhanced professional image.
It has been demonstrated repeatedly in large and small cities throughout the country that a police air support program can dramatically increase the safety of officers working in the streets, the effectiveness of police response in fighting crime, and consequently, the sense of security and well-being of the community.
Air support is remarkably cost effective. When compared to the full service costs of law enforcement in a city such as ours, and when matched against the potential savings in terms of added staff hours in routine patrol and overtime expenditures for crime suppression programs, the benefits exceed costs.
Analysis shows that for an approximate 1.3% increase in the Police Department's budget it is possible to implement a 40 hour per week in-house air support program, utilizing city owned aircraft staffed by sworn police personnel. This in-house program could be operated more effectively and at a lower cost than would be possible through an outside source. By scheduling the aircraft to be on duty during peak crime periods, and maintaining the flexibility to have it available during other periods, the program will provide sufficient coverage have a positive impact on crime rates and the public's perception of safety in the City.
With the approval of this innovative demonstration program, the City will join with other cities that have recognized the value of law enforcement aviation to ensure the safety and well being of their residents, businesses and visitors.