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HomeMy WebLinkAboutMINUTES - 05071996 - C90 C.89, C.90 and C.91 THE BOARD OF SUPERVISORS OF CONTRA COSTA COUNTY, CALIFORNIA Adopted this Order on May 7, 1996 , by the following vote: AYES: Supervisors Rogers, Bishop, DeSaulnier, Torlakson and Smith NOES: None ABSENT: None ABSTAIN: None SUBJECT: CORRESPONDENCE C.89 LETTER dated April 25, 1996, from Bill McManigal, Chairman, Transportation Partnership and Cooperation (TRANSPAC), 100 Gregory Lane, Pleasant Hill, CA 94523-5250, requesting the establishment of TRANSPAC as a Joint Powers Partnership. —t REFERRED TO TRANSPORTATION COMMITTEE AND COUNTY COUNSEL C.90 LETTER dated April 26, 1996, from Lou Rosas, Mayor, City of Concord, 1950 Parkside Drive, MS//01, Concord, CA 94519-2578, transmitting copies of a report and feasibility study on a proposed Regional Police Air Support Program, and inquiring if the County would be interested in participating in the Program. ****REFERRED TO COUNTY ADMINISTRATOR AND SHERIFF-CORONER C.91 LETTER dated April 25, 1996, from Barron McCoy, Administrative Analyst, Redevelopment Agency of the City of San Pablo, One Alvarado Square, San Pablo, CA 94806, advising that the Redevelopment Agency is the Lead Agency for the preparation of an environmental impact report for the Tenth Township Redevelopment Project and Legacy Redevelopment Project in the City of San Pablo. ****REFERRED TO COUNTY ADMINISTRATOR AND DEPUTY DIRECTOR OF THE COUNTY REDEVELOPMENT AGENCY IT IS BY THE BOARD ORDERED that the recommendations as noted (****) are approved. I hereby certify that this is a true and correct copy of an action taken and entered on the minutes of the Board of Sup�rvlsors on e e shown. ATTESTED: 7n-�� ' 1 r'✓ PHIL BATCHEWR Clerk of the Board of Supervisors and 6 unry Admtnlstrator 8y oeautr c.c. Transportation Committee County Counsel County Administrator Sheriff-Coroner County Redevelopment Agency - Deputy Director �T.T MJF CONCORD CITY COUNCIL 1950 Parkside Drive, MS/01 Lou Rosas,Mayor Concord,California 94519-2578 Bill McManigal,Vice Mayor iAx: k'510) 798-0636 Helen M.Allen Michael A.Pastrick Mark A. Peterson OFFICE OF THE MAYOR Lynnet Keihl, City Clerk Telephone: (510) 671-3158 Thomas Wending, City Treasurer Edward R.James,City Manager April 26, 1996 RECEIVED Mr.Jeff Smith, Supervisor APR 2 9 1996 Contra Costa County SUPERViSrr�R SMITH 651 Pine Street Martinez,CA 94553 Dear Supervisor Smith: On April 9, 1996 the City Council of Concord conducted a study session to consider the feasibility of a Regional Police Air Support Program. A copy of the Report to Council and feasibility study are attached for your review. Also attached is an addendum that addresses the issues and questions raised by the Council and members of the public at the study session. At the conclusion of the study session the Council authorized the Mayor to send a letter to each mayor of the County and the Board of Supervisors requesting consideration of participation in a Regional Police Air Support Program as described in the attached materials. The Council felt that the program was viable and could be an effective tool in police work, but only if it were a regional program. The purpose of this letter is to determine if there is interest from your agency in participating in the program. City Managers and Police Chiefs have received copies of the study. We are not asking for your agency to take a position at this time,but only to determine whether interest exists in studying the feasibility of a regional partnership. If you have any questions,please contact my office at 671-3158. Very truly ours, Lou Rosas Mayor MY8591.LR/WP6 Attachments: Report to Council /� / Feasibility Study „ tt A- Addendum to Study Session Meeting " ln�DJ cc: All Contra Costa County City Managers ADDENDUM - REGIONAL AIR SUPPORT FEASIBILITY STUDY On April 9, 1996, the Concord City Council conducted a study session with staff regarding the issues associated with the implementation of a Regional Air Support Program. During this session a variety of questions were raised by members of the Council and community regarding these issues. Though most of these issues were addressed in the Report to Council and the study, this addendum has been written to offer further clarification and more detail on these subjects. HOURS OF OPERATION When comparing police air support operations, experience has demonstrated that helicopters need to directly support the patrol function. In order to have the desired level of crime reduction, air support needs to be provided for a minimum of 1000 flight hours per year. This level of service will provide the member jurisdictions with the expected impact on crime and keep program costs at an affordable level. As this region's experience and demands change flight hours can be adjusted accordingly. The San Jose Police Department provides an example within the San Francisco Bay Area. They began their air support program in 1991 with a goal of 900 flight hours during the first year. They increased their flight time to 1000 hours in order to improve service. They currently operate at approximately 1000 flight hours annually. TOTAL OPERATING COSTS The Total Operating Costs(TOC)for this study includes all operating expenses related to providing police air support services to the participating agencies. The TOC includes fuel, maintenance parts and overhaul, labor, scheduled and unscheduled repairs, hangar, insurance, aircraft replacement and personnel. The TOC is based upon figures provided by Bell Helicopter-Textron and other helicopter operations using the OH-58 or JetRanger models of helicopters. These costs are defined in the typical cost analysis as Direct Operating Costs(DOC). This study has used the term Total Operating Costs to indicate that the figures represent a fully loaded estimate of related expenses. The TOC for the proposed operation is $489.00. This amount is very comparable to other air support operations using similar aircraft and staffing levels. Direct Operating Costs can be difficult to compare because of differences in the elements that are included. Some DOCs exclude costs associated with insurance, component parts, facility costs and personnel or combinations of these items. DOCs will change according to the type of aircraft being used. Other types of helicopters use fuel at higher rates than the OH-58 and need components replaced at different time intervals. Increased fuel use 90 Addendum-Regional Air Support Feasibility Study April 25, 1996 Page 2 and more frequent maintenance requirements bring operating costs up. DOCs quoted by helicopter operations can vary as much as the types of operations themselves. The TOC contained in this study has been analyzed by representatives of Bell Helicopter-Textron and existing police air support operations. It represents a realistic estimate of the costs associated with operating Bell OH-58 helicopters for airborne law enforcement purposes. The study has funded the police observer at $36.00 per flight hour. The observers are not proposed to be permanently assigned to the Air Support Program. They would come from a variety of sources from the member agencies including: full-time police officers, paid reserve officers and volunteer reserve officers. These options will depend upon the personnel resources of the agencies themselves. The observers will receive POST approved air crew training and be certified to act as police observers or flight officers. Since the observers are not considered a full-time component of the program, they are only funded for the 1000 annual flight hours at veteran police officer wages and benefits. ORGANIZATIONAL MODELS Several multiagency models have been studied and continue to be evaluated. The intent of the program is to provide an equitable funding strategy that will accurately forecast each agency's level of use and corresponding cost. Providing each member agency with a fair sense of ownership and control over the program is critical for long term success. Finding an organizational structure to meet these goals has resulted in two options. A non-profit, public benefit corporation can be created by the participating member police agencies to provide regional air support services. Each agency would become an owner and operator of the helicopter assets. Research conducted so far indicates that such an organization would qualify for tax exempt status under Internal Revenue Service Code section 501(c)(4) and possibly other 501(c) sections. This structure has worked successfully in other multiagency operations such as the Western Identification Network and California Shock/Trauma Air Rescue. Research is continuing into the potential liability to member agencies and their respective jurisdictions under this type of organization as compared to the other option. The other option would be the Joint Powers Authority(JPA). The Controller of California lists JPAs as special districts. These differ from other special district types by being voluntary associations of independent governing bodies which have joined together to support a common effort. The JPA is a mechanism that allows two or more local agencies to exchange, share or re-assign functions as a"functional consolidation". No loss of political autonomy is implied by being involved in a JPA. Once formed the JPA may create a commission or board composed of participating agency representatives in any agreed-upon ratio. The JPA may engage in any activity or provide any service for which member agencies possess joint authority. This structure limits liability to the JPA itself and does not extend to the member agency or jurisdiction. Addendum-Regional Air Support Feasibility Study April 25, 1996 Page 3 Both models satisfy the"common treasury" requirement of the Federal Aviation Administration for operating the helicopters as public use aircraft. Both organizations can be self-sufficient. PUBLIC USE AIRCRAFT AND AIRWORTHINESS The Bell OH-58 helicopters will operate as public use aircraft for airborne law enforcement purposes per 49 U.S.C. 40102(A)(37)regarding Government Aircraft Operations;FAA 4/19/95. Military aircraft by definition operate without civilian airworthiness certification. As a result the OH-58 helicopters have no such certificates. No such certification can be sought nor would it offer any advantage to the proposed operation. They were designed and operated to Department of Defense standards and military certification. These helicopters will be operated for direct law enforcement and patrol support. They will transport only those persons directly supporting the law enforcement mission. As a result Part 135 of the Federal Aviation Regulations will not apply. Strict safety, training and maintenance standards will be adhered to as described in Section VI of the study. A close liaison has been kept with the FAA throughout the development of this project. A military aircraft's lack.of a civilian airworthiness certificate has little to do with the aircraft's potential for safety. It is a procedure that has been adopted for regulating civilian aircraft standards. Military standards are very stringent regarding the design and maintenance of aircraft. The OH-58 helicopters intended for use in this program are not exceptions. We possess letters from maintenance specialists praising the excellent condition of both helicopters received by the Concord Police Department. High standards of maintenance were set and well documented by the military. The airframes have only 2600 and 3200 hours respectively and both helicopters have essentially new engines and associated upgrades with only 200 hours each. When not in use, both helicopters-were kept in hangars during most of their operational lives. Their current condition attests to the care and maintenance they have received. SAFETY AND TRAINING The Air Traffic Control Tower at Buchanan Field is closed between the hours of 10:00 P.M. and 7:00 A.M. This poses no safety concerns to aircraft operating in the area or to the public on the ground. Air.traffic during this time is typically very light and accounts for the tower closure. During high traffic periods when the tower is open, pilots are still required to see and avoid traffic as they fly through Concord's airspace. This is the same operating standard that exists when the tower is closed and is actually easier with the lighter traffic levels. The tower has no radar capability and offers traffic advisories only as workload permits. c.qv Addendum-Regional Air Support Feasibility Study April 25, 1996 Page 4 Aircraft accidents are always notorious no matter what their degree of severity are. Accidents are investigated and well documented by a variety of agencies, including the National Transportation Safety'Board (NTSB). These statistics are compiled in a variety of formats and become very useful as a tool for identifying causes of accidents and learning how to avoid them. Every aircraft operator and pilot strives to remain mishap free. Part of this process requires a constant quest for learning from the mistakes of others. Aircraft safety is a natural concern of both the community and the providers of airborne law enforcement. The proposed Regional Air Support Program is no exception and has actively studied the available sources of information. Over the past twenty-three years, five accidents have occurred involving law enforcement aircraft in Alameda and Contra Costa Counties. The Oakland Police Department suffered three incidents resulting in two officer deaths. One incident occurred in 1973 with a Hughes 300 piston engine powered helicopter. A sheared transmission shaft struck the pilot in the head, killing him. The observer, who was not a pilot, was unable to fly the helicopter. A subsequent crash and fire caused his death. This incident resulted in the Oakland Police Department using two police officer pilots on all flights. Both can operate as pilots or observers, providing necessary relief if fatigued and flight capability if a pilot becomes disabled. Incidents occurred in 1991 and 1993 with piston engine powered Enstrom helicopters. These were both nonfatal and determined to be pilot error due to fuel starvation and a training accident. The Oakland Police Department has constantly improved training standards and equipment. Since obtaining their turbine powered McDonnell Douglas 500 helicopters, no mishaps have occurred. The Regional Parks Police Department suffered one incident resulting in two officer deaths. In 1974 a piston powered Hughes 300 helicopter was being flown low through the Carquinez Straits. This flight resulted in a wire strike with the high tension lines strung across the water and was attributed to pilot error. The department has developed an aggressive training program including the use of two pilots or a flight officer capable of flying and landing the helicopter if needed. This has resulted in 25,000 accident free hours of operation. The Richmond Police Department suffered one incident with their airplane in 1984 resulting in two officer deaths. While flying a surveillance a midair collision occurred. This accident was attributed to pilot error. The Richmond Police Department no longer operates aircraft. Looking at all helicopter accidents, the NTSB has determined that a leading cause is inflight wire strikes resulting in uncontrolled flight and sever impact conditions. This is considered to be a pilot error related cause factor. This reinforces the need for constant and continuing training. It should be noted that the OH-58 helicopters are equipped with a Wire Strike Protection System which lends protection to approximately 90 percent of the helicopter's frontal area. This system includes wedge type wire cutters which will respond to a wire strike if needed. Addendum-Regional Air Support Feasibility Study �d April 25, 1996 Page 5 During 1995, a total of 66 single turbine engine helicopter accidents were reported in the United States. Of these, 14 caused 26 pilot and crew deaths. Police single turbine helicopters accounted for 10 accidents, including 8 pilot and crew deaths from 3 of those accidents. Of all of the accidents, 15 percent involved police aircraft. Of all of the fatalities, 21 percent involved police aircraft. Of the 66 accidents, only 8 (12 percent) involved the Bell JetRanger and none of the fatalities involved the JetRanger. Most of the Police accidents were determined to be pilot error with one mechanical failure of the tail rotor(non-fatal). During the past eight years the Bell JetRanger has enjoyed the best safety record of all light single turbine helicopters. The JetRanger's overall accident rate is 3.30 per 100,000 hours of operation for this period. Its fatal accident rate is .68 per 100,000 flight hours. For 1994 all rotorcraft flew approximately 2,007,000 hours. The accident rate for all helicopters was 9.47 per 100,000 hours of operation. These figures include piston and turbine engine helicopters. Total police aircraft hours flown are not available. This statistical information shows the need for good primary and recurrent pilot training programs. It also demonstrates the high reliability of the Bell JetRanger and its military counterpart the OH-58, when proper maintenance is performed. OPERATIONAL CONCERNS An issue which arises with many of the existing police air support operations is whether to have civilian or police officer pilots. The Oakland, San Jose and Regional Parks Police Departments insist upon the pilots being Police Officers. All of the Southern California agencies contacted agreed with this policy. Some agencies operating over rural terrain occasionally must land to make arrests or take other enforcement action. Departments such as the Regional Parks Police and the Los Angeles County Sheriff s Department have had many incidents where the only backup the flight officer/observer had was the pilot. An unarmed civilian would be unable to provide assistance. Most of the agencies said that it is easier to train an officer to be a pilot, than to train a pilot to be a police officer. Pilot qualifications and license requirements will generally be the same with both the officer and civilian. Studies by the Los Angeles Police Department have shown that safety is not enhanced by having civilian pilots. They have actually found that police officer pilots who are more oriented to law enforcement provide a more coordinated cockpit work environment and are more productive, having higher aircrew arrest rates. The primary reason for hiring civilian pilots is to reduce personnel costs. Due to lower salaries and benefits, the civilian pilots tend to be more transient and less dedicated to the mission and welfare of the air support operation. Though most agencies were in agreement regarding this issue, it will be studied further. Addendum-Regional Air Support Feasibility Study April 25, 1996 Page 6 Noise and sound related complaints are anticipated for an operation like this. The program will follow Buchanan Field's existing noise reduction programs and work with the community in operating at appropriate altitudes to bring sound levels to a minimum. Patrol flights will typically be at 800 to 1000 feet above ground level. Enforcement activity or other patrol support may require a 500 foot operating level but it would only be for the time necessary to conclude the event. Refer to page 5 of the Report to Council and page 18 of the study for further details. The planned operating altitudes offer a safe altitude for any inflight failures that may occur. Power-off autorotation are routinely performed and practiced from these altitudes during flight training. Some police agencies like San Jose, Burbank, Glendale and Los Angeles County have purchased the McDonnell Douglas 520N(NOTAR-No Tail Rotor). This is the quietest helicopter available. This would be a desirable helicopter for this program to utilize but it costs approximately$1,000,000 to purchase. Helicopters can be leased or rented for law enforcement use. Piston engine powered helicopters can be rented for between$135 to $185 per hour. These have limited mission capability due to reduced power and payload but can provide basic police support services. Maintenance and fuel costs can be included in the rental fee. A supplemental insurance policy will be extra depending upon coverage. A turbine powered helicopter may be available for$400 to $550 per hour. Again fuel and maintenance can be included in the rent. Operational flexibility and law enforcement equipment are usually limited to, what the owners are willing to allow. The Concord Police Department has previously used piston powered helicopters rented from Navajo Aviation and Helicopter Adventures Incorporated for specific photo and surveillance missions. The planned flight operations will be performed in visual meteorological conditions (VMC)which consists of at least 3 miles visibility and ceilings of 1000 feet. Visual Flight Rules (VFR) pertain to flying under these conditions. Might flights are conducted routinely under VFR when weather minimums are VMC. No special auto pilots or other flight augmentation devices are needed for VMC night flights. No instrument rating is needed for VMC night flights. Additional training and pilot ratings are always desirable but are not required for this type of operation. If a planned flight is canceled due to poor weather conditions, then the budgeted flight time may be used at a later time. Based upon information received from Buchanan Field and Travis Air Force Base, approximately 5 percent of the planned 1000 hours of _ operation may be affected by poor weather conditions. This means that approximately 50 flight hours may need to be adjusted to other times when better weather exists. This will require some flexibility for the air crews and member agencies in the form of schedule adjustments and other methods to reduce overtime expenditures. Addendum-Regional Air Support Feasibility Study April 25, 1996 Page 7 A Chief Pilot will be utilized to periodically check the quality of the pilots flying for this program. The Chief Pilot will be a Certified Fight Instructor with significant experience in this type of helicopter. The Chief Pilot will probably not initially be on permanent staff but will be utilized as required, based upon the standards set by the governing board. Several very-qualified pilots have offered their services as volunteers or for little cost. The Sacramento/San Joaquin Rivers and the Delta may require some rescue and enforcement activity. These helicopters are ideal for observation and search activity. Since they are not equipped with floats or a winch, rescues would not be practical. Though some rescue activity could be performed from land this would not be a primary mission. The U.S. Coast Guard and California Highway Patrol have winch capability. Other Air Ambulance services are well provided by the existing EMS helicopters such as CALSTAR or REACH. The program is designed to serve the contiguous region along central county's I-680 corridor and east county's SR-4 corridor. This region shares many of the same crime problems and response needs. It offers a practical size with adequate response times. Expanding the region would reduce the effectiveness and limit the impact which is sought. If air support were to be provided to parts of eastern Alameda County then an additional helicopter would have to be utilized to maintain desired service levels. Avionics and other radio equipment are currently available to provide communications capability on all of the desired frequency spectrums. Available technology allows for multiple frequency scanning, alert tones, multiple frequency with simultaneous broadcasts and microwave downlinks for video and forward looking infrared images to mobile command posts. These helicopters have the airframe capability to accommodate this available technology. All participating jurisdictions will have direct radio capability with the aircraft. Air crew members will be alerted to an incident by scanning the frequencies, pager/alert tones, or direct radio dispatch. Experience with the participants will determine the best technique. RESEARCH ISSUES Response times of the helicopters from the Regional Parks Police and the California Highway Patrol were tracked during the summer of 1995. The Regional Parks Police do not fly after dark because the parks are closed and the California Highway Patrol has only one helicopter based at Napa Airport which serves the nine Bay Area counties. These operational factors are the most significant reasons affecting their availability to Concord and the surrounding region. Concord police officers and supervisors are not yet trained or conditioned to know the benefits of immediate air support. As a result it is not requested _ as soon as it should be which further delays the helicopter's response. Because of past lack of availability, requests are also not made. It was determined that on average when helicopters were requested from either source, there was a 50 percent chance that one of.them would be available. When it was available, Addendum-Regional Air Support Feasibility Study April 25, 1996 Page 8 the response time was at least 30 minutes and the helicopter usually arrived after the event was over or the suspect penetrated the perimeter. The benefits of an air support resource will not be realized under this scenario. It is understood that these agencies have a primary responsibility to their own organizations and that they are a limited resource facing increased demands. Other regional programs that have been successful include the Airborne Law Enforcement Program of Orange County California, the joint program of Burbank and Glendale Police Departments, multiagency coverage by the Pasadena and Los Angeles Police Departments and the Harris County Sheriff's Department in Texas. As this program continues to evolve, new potential partnerships will be explored. These include the Regional Parks Police, Bay Area Rapid Transit Police and the Oakland Flight Standards District Office of the Federal Aviation Administration. ERRATA- Please RRATA-Please note the following corrections to the April 9, 1996,Report to Mayor and Council: Pages 6 and 7: Delete last sentence of last paragraph(paragraph 6)"About the only factor that the study was able to conclude in regards to" and delete two words at the beginning of first paragraph on page 7, "Participant Jurisdictions." Page 7: Conclusion of last sentence inadvertently omitted in last paragraph(paragraph 6). Complete sentence should read"These funds include up to $100,000 for operational expenses and$84,000 for equipment. Each agency's cost will vary depending upon how many and specifically which agencies agree to participate." • ' Regional Air Support Feasibility Study April 9, 1996 V Page 9 3. Consider some other alternative Air Support Program. 4. Direct the department to sell or dispose of the aircraft after May, 1996. Recommendation for Action Staff recommends Alternative 1. Prepared by Officer Rick Lehman Concord Police Department 12 dward R. James Robert V. Bradshaw City Manager 0 Chief of Police Enclosures: Attachment A- "Regional Air Support, An Analysis of Issues Leading to Implementation" i AGENDA ITEM NO. REPORT TO MAYOR AND COUNCIL ConeUr'd- TO THE HON ORABLEMAYOR AND COUNCIL DATE: April 9, 1996 SUBJECT: REGIONAL AIR SUPPORT FEASIBILITY STUDY Report in Brief In May, 1995, the City of Concord was awarded two military surplus helicopters for potential use as a regional resource for crime reduction and narcotic traffic interdiction. The City Council approved the acceptance of the aircraft and directed that a study be conducted to identify costs, benefits, and potential partnerships related to their utilization. This study has been completed and is contained.in Attachment A. This Report to Council will discuss specific issues associated with the use and operation of these aircraft. Staff is recommending the implementation of a Regional Air Support Program based upon the parameters contained in this report and the attached study. Background `Section 1208 of the National Defense Authorization Act provided law enforcement agencies around the country with the opportunity to receive surplus government aircraft for use as narcotic and gang interdiction tools. None of the police agencies in the County has an air support program other than the California Highway Patrol, which has one helicopter that is stationed at the Napa Airport and serves nine Bay Area counties. The cities and county have from time to time accessed this resource. In August, 1994, application was made to acquire surplus aircraft from the Department of Defense. The Police Department began to study the feasibility of a program which would bring the benefits of airborne law enforcement to this region, while sharing the costs of operation among the participating agencies. In May, 1995, the Concord City Council authorized the police department to accept two Bell OH-58 helicopters. The helicopters were provided at no cost from the military. Later that month, the two helicopters were flown from their base in Madison, Wisconsin to Concord, California at a cost of approximately $7,500. Purchasing similar new helicopters would have cost over$750,000 each. The only requirement placed upon the police agencies receiving excess Department of Defense aircraft is that they keep the aircraft for a period of at least twelve months prior to any disposal. After that time the aircraft can be disposed. of in any manner desired. The twelve month period for the Regional Air Support Feasibility St%dy April 9, 1996 Page 2 . Concord Police Department will conclude Junes 1, 1996. The only operational requirement placed on acceptance was that a portion of the use be devoted to local drug interdiction. The helicopters have been stored in a hangar at Buchanan Field where routine maintenance has been provided in an effort to keep the aircraft in an airworthy condition. In an effort to assure the accuracy of the findings and recommendations herein, industry specialists, including experts from the fields of airborne law enforcement and rotary wing aviation,, have been consulted during the course of this study. Discussion The research that was done in conjunction with the study identified a number of issues associated with the operation of helicopters for police air support. Positive and negative aspects have been analyzed for evaluation. The following discussion provides a brief.description and benefits of the proposed program as well as a discussion of organization, staffing, regionalization & operation, safety, noise, privacy, level of service to participating agencies, fiscal impact and outcomes. A statement has also been made in regards to the cost-benefit of the proposed program. The discussion below is more fully explained and developed in Attachment A. Description and Benefits of a Regional Air Support Program: Police Air Support has been utilized with great success around the world for over twenty five years. It is a proven law enforcement technology. When helicopters are used to support the patrol function the following benefits have been realized: •• Increased safety. • Improved response times to emergencies . • Increased safety and reduced exposure to liability during police vehicle pursuits. • Improved narcotic and gang interdiction. • Faster more efficient response for locating lost children. • Ability to use state of the art technology, i.e.; searchlights, Forward Looking Infrared (FLIR), robbery suppression and suspect tracking systems, and satellite navigation. • Reductions'in the following crime categories: robbery, burglary, larceny and auto theft. These crimes cost Concord residents $8.7 million last year. Studies show using police air support could reduce Concord's loss by over $1 million. • A reduction in the"fear of crime." This region currently does not have any dedicated air support resources for responding to public safety needs. When air support is needed either the Regional Parks Police or the California Highway Patrol (CHP) are called upon to provide service. Both agencies have primary responsibilities to their own organizations and are typically only available 50% of the time for requests by the Concord Police Department. The Regional Park's helicopter does not fly after dark. The California Highway Patrol (CHP) has one helicopter to serve the nine Bay Area counties and is based at the Napa airport. It is equipped with a searchlight but not a Forward Looking Infrared system. When either agency is able to � 90 Regional Air Support Feasibility Study April 9, 1996 ` Page 3 respond, the response time is such that benefits are not fully realized. Despite their best efforts, these agencies are unable to provide this region with the total benefits that a dedicated airborne law enforcement program can provide. Police air support serving this specific region could provide a timely and efficient response, allowing the full benefits of such a program. Organization: The police agencies in the central and east Contra Costa County region share similar crime problems and perform the same public safety functions. These agencies cannot afford specialized equipment for providing air support individually. Joined together as a multi-agency coalition, air support can be made available as a shared resource. Several multi-agency models were evaluated. The organizational structure with the highest potential for success involves the creation' of a non-profit, public benefit corporation by the participating police agencies. This model provides the member agencies with equal ownership of the aircraft and equal representation in'their operation. Staff research indicates that this type of organization can qualify for tax exempt status under Internal Revenue Service Code section 501(c)(3). This model also satisfies the"common treasury" requirement of the Federal Aviation Administration for operating the helicopters as public use aircraft. This alternative offers a self sufficient organizational model. It is proposed that each member police agency appoint a representative to the corporation's Board of.Directors. Each agency would receive equal representation regardless of their relative size or financial contribution. Voting rights provide each agency with one vote. A weighted voting system could also be considered as an alternative. The Board of Directors would receive information from advisory and community groups regarding specific community needs or technical issues. Operating policies would be the jurisdiction of the Board of Directors. The Board would direct the operation through a supervisor and/or air crew teams consisting of pilots and observers. Staffing: 4 It is anticipated that two pilots will be needed to operate the aircraft and that at all times, a pilot and a trained observer be present when an aircraft is in the air. The ultimate decision in regards to' the staffing, pilots and observers as well as all policies for operation would, however, be up to the Board of Directors. The analysis contained in Attachment A specifies costs both with staff(fully loaded) and without personnel costs. Regionalization & Operational Considerations: Experience has shown that in order to assure the effective response necessary for reducing crime, airborne law enforcement needs to be provided in direct support of the police patrol function. Such an operation should provide a minimum of 1000 flight hours per year to have the desired impact. For c � Regional Air Support Feasibility Study April 9, 1996 Page 4 example, in 1991 the San Jose Police Department began their air support program with a goal of 900 flight hours and increased it to 1000 flight hours during the first year to improve service. The two helicopters that the regional program plans to utilize can operate efficiently up to approximately 1300 total flight hours per year. Increasing the flight hours beyond this level requires increasing maintenance and air crew personnel to cover the additional time. The related costs would increase along with the personnel coverage and flight time. As air support service approaches the level of 2000 flight hours per year, it would become necessary to add a third aircraft to the fleet in order to assure that one helicopter was always available. 100% readiness would not be likely otherwise. The annual total operating costs essentially double with a 2000 hour per year operation using two helicopters. This level of service would likely be cost prohibitive for a startup operation, working within the current fiscal constraints of the proposed participants. .A program using 1000 annual flight hours can be effective and is a means to realize the benefits that police air support can bring to this region. . Cost. considerations dictate that any operations be on a regional, multi-agency basis. No one agency in the Central County appears large enough in terms of sworn officers or in terms of law enforcement demand to operate these aircraft on their own. Nor does any jurisdiction appear to be in a financial position to support this operation as a single entity. In addition, no police agency, with perhaps the exception of the County Sheriff, is geographically large enough to justify aircraft. These factors dictate that any operation be regional in nature. This being the case, operational considerations and coordination become important. In order to assure timely response, police aircraft fly as a patrol support function. It is more effective if member agencies have contiguous boundaries so that a "flight corridor" can be maintained between participating jurisdictions. This will limit wasted flight time between call demands and provide an efficiency quotient for the operation, i.e., the aircraft, can always be functional while airborne. It appears that a core group, starting in the Central County and consisting•of five or six agencies, would be necessary to provide a financially viable program. From a cost standpoint, either the County Sheriff or Regional Fire must be involved to make the operational affordable to all participating agencies. Individual agency costs are significantly reduced if both the County Sheriff and Regional Fire.participate. Any additional involvement from the Central and East County cities outside the core area will help distribute the cost over a larger base and will increase the operational efficiency and dffectiveness of the air support unit. The experience of existing air support programs throughout the nation have demonstrated that such an:operation needs a minimum of 1,000 flight hours per year in order to have the desired results. The flight schedule should be based upon when the greatest demand for police services exist. For example, a review of these statistics for Concord reveals that a scheduled four day week of Thursday through Sunday, between the hours of 4:00 P.M. to 2:00 A.M. would be most effective. However, sound level concerns may limit patrol flights to no later than midnight. An historical service review conducted of Concord's service demands using 1995 information demonstrated that during the days of high police response demands the helicopter could be utilized for Regional Air Support Feasibility Study April 9, 1996 Page 5 approximately six incidents per day; in essence an average of just under one event per flight hour. These deployment opportunities included suspect searches,'in progress crimes (e.g., burglaries and robberies), foot chases and vehicle pursuits. Each of these types of calls typically use five to six officers for. 30 to 60 minutes. Using a helicopter would allow a more secure perimeter to be maintained with only two to three ground officers. The rapid response of the helicopter would contain a fleeing suspect in a smaller area and allow for a more efficient search to be conducted with the searchlight and forward looking infrared technology. A search which would have previously taken an hour could now be conducted in 15 to 20 minutes with greater success and fewer personnel. Utilizing the Concord numbers only and confining the analysis to the Concord jurisdiction, the non-helicopter assisted call could use 3 to 6 officer hours versus the helicopter assisted call which could use 1 officer hour, including the aircrew. During a typical day in Concord this could save up to 30 Officer Hours on calls with helicopter assistance. One week's worth of helicopter assistance could free up as much as 120 Officer Hours. This translates to adding approximately three (3) officers to the existing field patrol force in Concord. Each participating agency in this region could attain similar benefits. Extrapolating the Concord analysis to the core agencies, 16 demands per flight day can be anticipated for these agencies. Safety: 4• The Bell OH-58 helicopter is considered one of the safest in the industry. Every successful aviation program has a comprehensive training plan to maintain pilot and crew proficiency in its aircraft. The primary objective of this program is safety, including safety of air crew members, patrol officers and citizens. -A comprehensive maintenance program is planned with highly qualified personnel, in order to provide the safest operation possible. When compared to other single engine, light turbine helicopters, the Bell continues to be the safest. Safety for this program rests upon having more than just a well engineered aircraft. The Airborne Law Enforcement Association, which is a world wide association of police air support operations, recommends that the safest units are those that address safety on all levels. Personnel should be assigned based upon talent, skill and merit. Training that is relevant to their duties should be provided on a continuing basis to all personnel, whether it is piloting, observing, maintenance or management. The operation needs to be able to accomplish its mission under the worst of circumstances. Managers need to know the capabilities of aircraft, air crews and the mission. Airborne Law Enforcement has special demands that need to be understood and supported. Standards need to be set regarding maintenance. performance and training that will maximize safety. Airborne law enforcement generally enjoys a better safety record than the industry as a whole. This proposed regional air support program is designed around this type of philosophy. Noise: The sound produced by the OH-58 helicopter is very similar to that produced by the helicopter currently flown by the California Highway Patrol throughout the nine Bay Area counties. Studies conducted by the Helicopter Association International place the sound level of these helicopters at approximately 85dB for a flyover at 500 feet above ground level. This is a sound level like that of Regional Air Support Feasibility Study April 9, 1996 Page 6 traffic on a major street..Increasing the aircraft's altitude reduces the sound perceived by persons on the.ground and can be an operational consideration if necessary. Normal operating altitude for police operations is 800 feet. Concord's Buchanan Field has one of the largest civilian helicopter training schools in the country, therefore the addition of one more helicopter should have little noticeable impact. It is suggested that flights be conducted in accordance with Buchanan Field'.s existing sound reduction policies and procedures. It is recommended that police employees of participating jurisdictions be trained in both the process and philosophy for handling the sound level complaints that will occur. Research has determined that the best way to resolve complaints is to explain to the concerned party what was occurring in the neighborhood at the time they were disturbed. Cities like San Jose that have used this complaint handling strategy have found that the majority of callers not,only.understand the need for the increased sound level, but actually become supportive of the operation that caused it. Privacy: Privacy issues can be addressed in the same manner as the noise complaints. An operational policy suggests that the searchlight should only be scanned over private property when police operations are in progress. These efforts are in support of searches for lost children, criminal suspects or fugitives. Citizen noise inquiries to police can actually improve the quality of the searches by alerting residents and encouraging them to report any unusual activity. The police helicopter will only remain over'a given area for the length of time necessary to conclude the search or to assure public safety regarding a specific event: No invasive tactics will be utilized. Level of Service to Participant Jurisdictions: The proposed regional air support program would provide the same level of service to all participants. Any member agency can call for air support anytime and as often as needed with no change in their annual contribution. An equitable method for projecting each agency's annual use and its resulting financial obligation has been successfully utilized by other regional programs. This formula projects the member agency's rate of use and the corresponding cost by comparing the population, square mileage, Part I crimes and the number of full-time police officers of each participant. It would be the responsibility of the Board of Directors of the consortium to establish priorities and procedures that provide direction to the flight crew when conflicting demands arise. Cost Benefit: Attempting to establish a cost benefit analysis in regards to this project can be problematic. First, the assumptions necessary to establish the parameters of cost benefit are based on such fragile information that any conclusions can be easily challenged. Second, like most efforts in regards to cost benefit analysis of components in the criminal justice system, increased effectiveness can result in increased expenditures. Increased arrests generally result in increased costs for adjudication, with the exception of the potential staffing savings mentioned above in the section titled "Level of Service to Participant Jurisdictions." About the only factor that the study was able to conclude in regards to Regional Air Support Feasibility Study April 9, 1996 Page 7 Participant Jurisdictions." About the only factor that the study was able to conclude in regards to benefits of an air support program was in regards to the reduction of victimization in terms of property loss in uncommitted crime. San Bernardino County conducted a 46 agency study that concluded that an air support unit reduced the occurrence of crime. Specifically the crimes of robbery, burglary, larceny and auto theft were impacted. Using the conclusions of this study, staff has concluded that the citizens of Concord will realize an annual $1.1 million reduction in loss as a result of the city's participation in an air support program. (See Exhibit 1 in the study.) However, the staff savings described on page 5 herein above has the potential result of freeing up as much as 120 hours of patrol officer time that could be used for other policing activities. Fiscal Impact The Direct Operating Costs for the OH-58 helicopter includes fuel, all maintenance components, overhaul and labor. These costs are amortized to cover the repair and replacement of all "life limited" components. These items have a scheduled replacement life and assure that the aircraft remain reliable and safe. Also included in the Direct Operating Costs are the costs of hangar rental, insurance and reserves to replace the aircraft. These costs have been determined to be $303 per flight hour without personnel (Exhibit 2). The costs increase to $489 per flight hour when personnel costs are included (Exhibit 2a). Therefore, an operation flying program utilizing 1000 hours per year would cost between $303,000 and $489,000 on an annual basis; this cost differential is shown since it has not been determined whether personnel for this program would be over and above current allocations. These costs also include an airship replacement feature where the airship is replaced on a 15 year basis. In addition, some of these costs may be offset by agency in-kind contributions as determined by the policies of the Board of Directors. Based upon a nine member agency coalition, Concord's annual share would be $71,200 for Direct Operating Costs (without personnel). A one time expenditure for purchasing equipment such as radios. searchlight and forward looking infrared would be funded under the same cost sharing method. Concord's share would be approximately $59,267, for a total first.year cost of$130,467. Adding personnel to the Direct Operating Costs includes the price of two full-time_pilots and an allowance for 1000 hours allocated to the accompanying observers who would be assigned to the consortium. They would be funded at the police officer rate plus benefits. The total operating costs with personnel becomes $489 per hour or $489,000 per year for 1000 flight hours. No other expenses have been identified for this level of operation. Concord's annual share of a nine member coalition at this cost would be $114,920. Concord's share of equipment funding would be $59,267 for a total first year cost of$174.187. The nine member agencies proposed in this model represents a contiguous and similar geographical area, which will allow for an effective and timely response by the helicopter. A larger area could reduce the impact of any air support activity. If fewer member agencies participate, then Concord's share of the costs will be proportionately greater. The budget proposal for FY 96/97 includes the cost to provide Concord's share of the operational and setup costs of a regional program. These funds include up to $100,000 for operational expenses Regional Air Support Feasibility Suidy April 9, 1996 Page 8 Outcomes: Police air support has been successfully utilized for over twenty-five years in the United States. It is reasonable to presume that using similar technology. will result in a similar success locally. The following performance expectations would be a reasonable measure of that success for Concord: • Field officer available time improved by 120 hours per week • Reduced exposure to officer injuries with resulting reductions in work hour loss and worker compensation insurance costs • Reduced exposure to liability during.police vehicle pursuits • Community's increased sense of safety • An increase in cleared cases by field officers • Improved citizen satisfaction with police performance Public Contact Posting of the Council agenda. A copy of this Council Report and the accompanying study has been provided to each City Manager and Police Chief in the County, as well as the Contra Costa County Sheriff and Fire Chief, for their review and consideration. In addition„ a number of copies have been given to individuals who have shown interest in this project or have asked for copies. Alternative Courses of Action 1. Authorize the following actions regarding the proposed Regional Air Support Plan: a. Authorize the Mayor to send a letter to each mayor in the County and the Board of Supervisors requesting they consider participation in a Regional Air Support Program as described herein. b. Direct the City Manager and Police Chief to correspond with counterparts in cities/county to solicit participation. c. Direct staff to report back to Council, within 90 days, regarding progress towards possible implementation. d. Projected timeframe for full operation to occur in FY 96/97. 2. Authorize an operation in which Concord assumes all benefits and costs associated with operating the Bell OH-58 helicopters. ATTACHMENT A �•�� t REGI-ONAL AIR SUPPORT AN ANALYSIS OF ISSUES LEADING TO IMPLEMENTATION Ii PREPARED BY RICK LEHMAN CONCORD POLICE DEPARTMENT REGIONAL AIR SUPPORT TOPICS I. INTRODUCTION, CRIME'S IMPACT AND POLICE RESOURCES II. BENEFITS OF UTILIZING AIR SUPPORT DEDICATED TO THIS REGION III. COSTS OF IMPLEMENTING THE REGIONAL AIR SUPPORT PROGRAM IV. MULTI-AGENCY FUNDING TO PROVIDE REGIONAL AIR SUPPORT V. ORGANIZATIONAL MODEL FOR OPERATING A MULTI- AGENCY, REGIONAL AIR SUPPORT UNIT VI. REGIONAL AIR SUPPORT STAFFING AND POLICY VII. REGIONAL AIR SUPPORT IMPLEMENTATION PLAN VIII. MULTI-AGENCY COALITION, TIME LINE IX. REGIONAL AIR SUPPORT, BENEFIT EXPECTATIONS, SUMMARY EXHIBITS ARE ATTACHED TO THE END OF THIS REPORT REGIONAL AIR SUPPORT AN ANALYSIS OF ISSUES LEADING TO IMPLEMENTATION I. Introduction, CRIME'S IMPACT and POLICE RESOURCES A. Regional Crime Trends 1. Continuous rise in crime rates over the past ten years. 2. Steady increase in gang activity. 3. Increased use of firearms. 4. Rise in random acts of violence. 5. Public has more fear of crime. 6. Reductions in certain property crime rates. a. Specific enforcement targets. .7., Crimes related to drug abuse and its trafficking. a. Increased domestic production of methamphetamine. b. California's methamphetamine traffic now rivals the cocaine traffic of Columbia. c. Contra Costa County has historically been a center for methamphetamine production and remains a significant market for the drug. ° 8. Contra Costa County bank robberies at a record high. a. 74 Bank Robberies have occurred countywide during 1995, compared to 70 for 1994. b. Banks have lost a total of$378,844 during 1995 compared to $191,132 for 1994. c. 78 % of all Bank Robberies have occurred within the central county region. 1 d. Statistics don't account for the physical and emotional suffering associated with these crimes. 9. Public's loss of confidence in the judicial system. B. Regional Law Enforcement Resources 1. Traditional policing a. Increase police officer to population ratio (Expensive to add personnel). b. Police patrol (ground vehicles/foot beat). c. Reactive response to emergency incidents. (Concord has average response times of over 8 minutes to Priority 1 calls , as measured from time call received to time officers arrive onscene. National standards have determined that a 5 minute response time should be the goal.) d. Arrest and incarcerate criminals. e. City and department liability increasing on pursuit and arrest related situations. f. Reactive air support through Regional Park Police or the California Highway Patrol (Unavailable 50% of the time or response time too slow to assist the requesting agency). 2. Community Oriented Policing a. Police/Community partnerships. b. Increased police involvement within the community. c. Increased community involvement. 3. Police intervention programs a. D.A.R.E. b. SAFE Streets. c. Youth intervention. 2 4. Prosecution and Judicial systems a. High personnel costs related to police follow-up investigations where arrest is not made during initial police response. b. Arrests made during initial police response result in higher filing rates by the District Attorney's office. c. Arrests made from "in-progress" crimes yield better evidence thus higher filing and conviction rates. d. Convictions result in incarceration,thus removing the problem from the community and reducing crime. II. Benefits of Utilizing Air Support Dedicated to this Region A. Improves the efficiency of the overall police response to crime,acting as a FORCE MULTIPLIER. 1. Reduced need for many ground officers to hold perimeters and conduct searches. (Frees officers for other duties) 2. Utilization of searchlight and forward looking infrared (FLIR) r allows more efficient search to be conducted. (Less time, less personnel and higher success rate) 3. Reduced police response times. (When the response time is cut in half the opportunity for an arrest doubles) 4. Improved Officer Safety. (Airborne presence imparts safety) 5. Increases our ability to locate lost children and "at risk" adults. 6. Better Command and Control capabilities during critical incidents and natural disasters. 7. Officers can observe a great deal more area than their ground based counterparts, bringing Law Enforcement into the Third Dimension. 8. REDUCED EXPOSURE TO LIABILITY DURING VEHICLE PURSUITS when helicopter assumes control; fewer accidents. 3 9. Fewer injuries to officers during foot pursuits due to tactical advantage and observation capabilities. 10. BANK ROBBERY SUPPRESSION through electronic tracking systems i.e. ProNet. 11. Narcotics interdiction a. Surveillance b. Tactical support for arrest and search warrant service. 12. Deployment platform for special teams i.e.: SWAT, CSI and K9. 13. Improved Efficiency of all Police Resources will improve the Communities' Quality of Life and reduce the Fear of Crime. B. Studies Support Benefits Claimed by Agencies Utilizing Air Support. 1. University of Southern California studied the effects of helicopter use. a. Resulted in significant impact on crime within area using Air Support. b. Criminal activity displaced to areas not using it. c. Greatest reductions in certain crime rates namely; Robbery, Burglary, Larceny and Auto Theft. 2. San Bernardino County Sheriffs Department surveyed 46 agencies utilizing Air Support which revealed the following impact. a. Robbery reduced by average of 8.6 % b. Burglary reduced by average of 10.3 % c. Larceny reduced by average of 10.6 % d. Auto Theft reduced by average of 15.5 % 3. Based upon claims made by other agencies throughout California and the United States who have utilized Air Support for over 25 years our region can expect similar if not better results. 4 4. .Applying the proven results of other agencies to our region's crime picture,we can realize a significant cost SAVINGS TO VICTIMS. a. Refer to exhibit#1 (attached)which uses the latest information from the 1993 F.B.I. Uniform Crime Report. b. It shows cost of victim's property loss only and excludes any medical or police resource costs. 5. President's Commission on Law Enforcement and Administration of Justice reports, "there is a correlation between response time- the speed with which police can arrive at a scene- and apprehension." a. Helicopters place police officers at crime scenes faster than any other available method thus increasing the opportunity for making an apprehension. 6. National Aeronautics and Space Administration (NASA)Jet Propulsion Laboratory researchers concluded, "the operational results indicate that a helicopter and car patrol team effects almost three times as many arrests in the city as a whole, per reported officer...On an operational basis the helicopter/patrol team effected arrests in 45% of the calls they responded to." 7. Many police departments utilize Police Air Support for Gang Suppression such as San Diego and San Jose. a. Reduces street level drug activity. b. Provides Law Enforcement access to remote gang gathering and hiding places. c. Allows rapid response to violent crimes and ARMED "drive by" encounters. d. Increased Officer Safety for patrol officers responding to gang related activity. 8. Airborne Law Enforcement Association a. More efficient use of available personnel and less utilization of"follow-up" investigative resources results in cost savings to the police and the community. 5 C. Fire Fighting Capability 1. Contra Costa County's 15 fire departments (including corporate departments) currently have no dedicated aircraft for command and control nor actual fire fighting. a. California Department of Forestry and other contract aircraft are frequently not available to respond to wild land fires in this county due to demands elsewhere. 2. An immediate response by aircraft to a wild land fire saves lives and property. a. Aerial water drops have been performed by helicopters in many jurisdictions around this state, including Oakland (by Oakland police pilots) and has successfully saved neighborhoods and lives. b: An aerial response has immediate access to a fire scene and gives valuable time to allow heavier equipment to respond. c. Air Support reduces personnel needs by keeping the fire scene small and more manageable. d. Our regional Air Support resources would guarantee that this county always has aerial fire fighting capability. e. Pilots flying for this region can be trained and certified to safely perform water drops and other fire fighting support. 111. Costs of Implementing the Regional Air Support Program A. Aircraft Acquisition 1. Two Bell OH-58 (JetRanger) helicopters received at no cost from the Army National Guard,under the surplus, section 1208 NDA Act. 2. Both aircraft are being maintained in "flyable" condition through contract maintenance and with volunteer help. 3. Both aircraft are being stored in a hangar at Buchanan Field in .Concord which will also offer a future base of operations. 6 4. Both aircraft offer multimission capability including observation, personnel deployment, evacuation and fire fighting by water drops. 5. The OH-58s were designed as a military reconnaissance and observation helicopter which is very compatible with the police mission. Determined to be the SAFEST helicopter worldwide. B. Total Operating Costs (T.O.C.) and Direct Operating Costs (D.O.C.) 1. T.O.C. covers all operating expenses related to providing Police Air Support Services to the participating agencies, including all maintenance,fuel,hangar, insurance, aircraft replacement and air crew personnel. 2. Because of the force multiplier advantage from having police air support capability, no additional personnel need to be hired. Air Crew members may be assigned from existing personnel or volunteer reserve officers. 3. These costs are estimated to be $489 per flight hour. Refer to exhibits #2 & #3 depicting TOTAL HOURLY OPERATING ':"COSTS for the breakdown of estimated costs. Direct Operating Costs '(D.O.C.) include all costs except personnel. These are shown with the exhibits for comparison purposes. 4. T.O.C. finances various maintenance items by building reserve funds that cover replacement and overhaul costs when they come due. This allows the helicopters to be kept in "like new" condition and keep safety as a primary goal. 5. The aircraft logbooks reveal an impeccable maintenance history for the aircraft. These logbooks indicate when major components are due to be replaced or overhauled. Refer to exhibits #4 & #5 which depict the 10 YEAR AIRCRAFT MAINTENANCE PLAN. This projects when certain major maintenance items will come due and includes estimates for the related costs over the next ten years. These figures are based upon an operation flying approximately 1000 hours per year,with each aircraft flying 500 hours each. Each helicopter is depicted on a separate chart. 6. The planned operation is to keep both aircraft"flyable" in order to keep "readiness" at 100 %. One aircraft will always be out of the maintenance cycle, ready to fly. This is a frequent problem for 7 the California Highway Patrol in this area due to having only one helicopter for the nine bay area counties. 7. Maintenance reserve funds will accrue at the rate of approximately $149,280 per year at the T.O.C. rate which includes Airframe Direct Maintenance,Parts and Powerplant Direct Maintenance. (See Exhibit#2) Maintenance costs will vary from year to year. They will frequently be less than what has been accrued, but will occasionally be more. The available funds will always be sufficient to cover the maintenance expenses. 8. Aircraft replacement reserve funds are primarily allocated for the eventual replacement of the aircraft with new or used equipment. The OH-58 helicopters typically have an operational life of about 20,000 hours. If resale is a concern then use should be reduced to approximately 10,000 hours. Flying at a rate of 500 hours per year, per aircraft allows for 20 years of use for each aircraft at 10,000 hours use. The OH-58s have airframes that are each 24 years old currently. Since they have both been in hangars throughout their operational lives when not in use, they are in excellent condition. Providing similar care and maintenance should permit another 10 to 20 years of use. a. Aircraft replacement reserve funds will accrue at the rate of $58,040 per year at$58.04 per hour. (See Exhibit#2) b. These reserve funds will occasionally be necessary to offset maintenance costs for those years when costs exceed the available maintenance reserves. (See Exhibit#6,years 4 and 7 for example.) c. Replacement reserve funds should provide in excess of $1,000,000 at the end of 20 years. This will purchase one new aircraft or two used aircraft. 9. Refer to exhibit#6 depicting the 10 YEAR OPERATIONAL CASH FLOW. This projects maintenance costs for both aircraft, maintenance and replacement reserve funds as well as the other items included in the T.O.C. over the first 10 years. Actual annual costs based upon scheduled parts replacement and overhaul are shown. (The methodology has been reviewed by Concord's Finance Director and found to be valid.) 8 C. Cost of Equipping the Helicopters 1. Maintaining a ective and aicient multimission capability requires the latest technology in auxiliary equipment. This equipment saves both time and personnel needs,as well as increasing safety. 2. Current technology allows for Forward Looking Infrared and night vision, video and FUR downlinks to command centers, radio repeaters,programmable radios over the entire frequency spectrum and global positioning system navigation. 3. Refer to exhibit#7 which depicts the recommended equipment, estimated costs and suggested way to fund it. Only one searchlight and FLIR unit are necessary since they can be shared between both aircraft. As time progresses and Air Support becomes a proven public safety tool in this region, equipment can be expanded with new technology and spare equipment,to avoid "down time." 4. Federal legislation was sponsored by Senator Diane Feinstein.to assist agencies that were awarded surplus aircraft with equipment expenses. Her office has advised us that the funding bill was cut . .-from the conference committee. Heavy lobbying efforts are continuing in Washington for similar financial assistance. 5. Interest has been expressed by members of the community as to how they may be able to financially assist the implementation of the Air Support program. It may be possible to seek several private funding sources for equipment, if the shared cost strategy is not initially feasible. IV. Multi-Agency Funding To Provide Regional Air Support A. Shared crime problems require shared solutions. 1. All public safety agencies within this region perform similar functions. The Interstate 680 and State Route 4 highway corridors bring similar suspects and crime problems to each agency in this region. 2. Most agencies alone can not afford specialized equipment that can enhance officer performance, increase officer and community safety, reduce officer workload and cut crime. 9 a. A regional multi-agency program can share costs and make this resource AFFORDABLE. 3. A regional Air Support program will provide the same level of service to all participants,despite the relative size of the participating agency. a. Any participating agency can call for Air Support anytime and as often as needed with no change in their annual cost. b. Calls for service are handled by order of seriousness,with more serious calls taking priority over less serious. c. The Air Crew will determine priority based upon policy and proximity when events of equal priority occur. These policies and procedures will be established by the participating agencies' representatives. d. Air Crew members could come from existing personnel or volunteer reserve officers of the participating agencies. 4. Other regional air support programs around the country have been very effective in serving their participating communities. New programs are currently under development nationwide. a. Our program is being studied and monitored closely by several agencies from around the country as a potential model. 5. Participation by the county's Fire Departments may reduce the police participant costs by 1/3, as shown in exhibits 7 and 8. 6. A formula which has been utilized by other successful regional programs can determine the cost sharing factor of the agencies participating. a. It is Equitable. b. It projects the level of use by the participating agency based upon;population, square mileage,part I crimes and the number of full-time police officers. 10 c. A comparison of these items-provides a percentage rate which equates to the projected use by the participating agency. Refer to exhibit#8 depicting COST ANALYSIS PER AGENCY for the nine agency(central and east county) model and exhibit#9 depicting COST ANALYSIS PER AGENCY for the twenty city (countywide) model. d. This formula can be utilized for any number of participating jurisdictions in order to determine an equitable cost for their utilization of this valuable resource. As you can see the cost is less per agency with more participants. e. This funding strategy is also shown in exhibit#7 EQUIPPING AIRCRAFT AS SHARED COST. V. Organizational Model for Operating a Multi-Agency,Regional Air Support Unit A. Creation of a Non-Profit,Public Benefit Corporation. 1. This model has been used with great success in other public safety functions which require multi-agency participation. a. Western Identification Network,Inc. provides multi-state law enforcement with an automated fingerprint identification system. This organization was incorporated in Nevada and includes police in Alaska, California,Idaho, Nevada, Oregon, Utah,Washington and Wyoming. The system is based in Sacramento, California. b. Harris County Sheriffs Department,Texas has formed a non-profit corporation in order to provide a multi-agency Airborne Search and Rescue operation. They operate one OH-58 helicopter and seventeen fixed wing aircraft. c. California Shock/Trauma Air Rescue (CALSTAR) operates as a non-profit medical air rescue service. They are funded by a coalition of area hospitals and operate three helicopters. Though they are not a law enforcement agency, they provide a successful example of several organizations joining as a non-profit corporation to provide airborne public safety resources. 11 2..This organizational model provides equal ownership and representation to the member agencies. a. They can be assured that they will receive the services that they are paying for. b. The corporation owns the aircraft and support equipment. c. The member agencies create the,board of directors which administers the operation. They select their own representatives. Each agency will act with equal authority, despite size differences. (Refer to exhibits for the organizational chart.) d. The goal is to remove the politics'which so often choke organizations and cause them to fail. 3. The non-profit corporation would allow the operation of the OH-58 helicopters as public use aircraft, per 49 U.S.C. 40102(A)(37) regarding Government Aircraft Operations. F.A.A. 4/19/95. a. Military aircraft by definition operate without civilian airworthiness certification. As a result the OH-58 helicopters have no such certificates. They were designed and operated to Department of Defense standards and military certification.. b. Lack of a civilian airworthiness certificate has little to do with the aircraft's safety. It is merely a procedure that has been adopted for regulating civilian aircraft standards. c. Military standards are very stringent regarding the design and maintenance of aircraft. The OH-58 helicopters are not exceptions. d. We possess letters from maintenance specialists praising the excellent condition of both aircraft received by the Concord Police Department. High standards of maintenance were set and well documented by the military. e. Public use aircraft must operate from a common treasury and can not seek cost recovery except in emergency situations. A multi-agency, non-profit corporation provides the needed components in order to comply with the new 12 Federal Aviation Regulations and to deliver affordable Air Support. 4. Laws regulating the creation and operation of the corporation. a. California Corporations Code(CCC)section 5000 states the general requirements and conditions of incorporation. This includes drafting and filing articles of incorporation,the bylaws and the formation of a Board of Directors, officers, membership and voting criteria. b. CCC sections 5004-5005.1 state that a corporation may be sued. As a condition of existence the corporation is subject to the provisions of the California Code of Civil Procedures which authorizes the attachment of corporate property. It is anticipated that the corporation will carry its own insurance,which will be separate from normal risk management coverage. ` c. CCC section 5110 states that the corporation would qualify as a non-profit, public benefit corporation and would qualify for tax exempt status under Internal Revenue Service Code (IRC) section 501 (c)(3). Government units are exempt from being considered as private foundations under IRC 509 (a)(1). VI. Regional Air Support Staffing and Policy A. Personnel 1. Selection a. Persons assigned to the Regional Air Support Unit should possess qualities of proven leadership and personal initiative. b. Pilots need to meet the minimum standards as set by unit policy and the insurance carrier. c. Air crew members must have an exceptional knowledge of police work including.operations, tactics, community relations and a strong desire to serve. d. Crew members must be willing to work in a flight environment and to constantly promote safety. 13 2. Training a. Every successful aviation program has as its cornerstone a dedicated training plan to maintain pilot and crew proficiency. b. The primary objective is safely. Safety of helicopter air crew, patrol officers and our citizens. c. Modern technology and an aggressive ongoing maintenance program make"in flight". emergencies extremely rare. However, continuous training for these situations is done routinely. Adequate primary and ongoing flight training are absolute necessities. d. The unit's insurance carrier will require factory training for each pilot to act as pilot in command. This type of training is typically a week in length and costs approximately$3500 per pilot's course, using the factory's aircraft. e. Each pilot will be licensed by the.Federal Aviation Administration and approved for flight by the unit's Chief Pilot,who will be an F.A.A. certified flight instructor. L In addition to the standard flight review training required by the F.A.A., advanced flight training should be conducted annually, utilizing an appropriate flight school's aircraft. This is similar in cost and duration to the factory school. 3. Staff a. The Corporation's Board of Directors will be responsible for making the personnel assignments. b. The Board of Directors will be comprised of one representative from each participating agency. A method of easing implementation of this group would be to utilize a subgroup of the Contra Costa Police Chiefs Association until the Board could be formed. 14 c. Staff should include a supervisor, at least two full time helicopter pilots and a roster of trained observers. Two pilots and two observers would allow for coverage of vacation and sick days, as well as "call out services." d. Helicopter pilots should be assigned on a permanent basis, due to the value and safety considerations of experience. Insurance rates are also typically less as a pilot gains experience. e. In order to assure efficiency and proper exposure for each of the participating agencies, observers should come from the ranks of those departments. L The observer's assignments should be at least several years in length so that the benefits of training and experience can be enjoyed by the air support operation and member agencies. g. Observers need to possess an aptitude for reading maps and keeping proper orientation with the area's topography. Being able to perform a variety of tasks simultaneously is also needed. h. Each air crew, consisting of a pilot and observer could be scheduled to fly every other week. The non-flying crew will be responsible for briefings with the member agencies, training and coordination with member agencies, as well as public appearances and presentations. L When not flying, air crews will be involved with maintenance related issues, briefings, training and necessary paperwork. 4. Regional Air Support Patrol Schedule a. In order to assure the effective response necessary for reducing crime, the Air Support unit is proposed to be operated as a patrol support'function. Experience shows that such an operation needs a minimum of 1,000 flight hours per year in order to have the desired impact. For example in 1991, San Jose Police began their program with a goal of.900 flight hours and increased it to 1000 during the first year. Two flyable helicopters can support up to approximately 1300 flight hours. increasing flight hours beyond _ this level would require increasing maintenance and air crew personnel to cover the scheduled hours. A third aircraft would be 15 J needed to assure that one aircraft is always available. 1000 flight hours is the most practical level for starting this operation with two helicopters. b. The helicopter flight schedule would be based upon the high activity days and times for all of the member agencies. For example a review of these statistics for Concord reveals that a scheduled four day week of Thursday through Sunday, between the hours of 1600 to 0200 hours would be most effective. Sound concerns may limit patrol flights to no later than 2400 hours. c. Sample Flight Schedule: Patrol Flight - 1500 to 1700 Refuel - 1700 to 1800 Patrol Flight - 1800 to 2000 Refuel - 2000 to 2100 Patrol Flight - 2100 to 2300 Refuel - 2300 to 2400 Flying can be very fatiguing. This schedule allows for the crew to rest between flights and to get necessary reports and paperwork completed. d. Scheduling and staffing issues are very flexible and can be adjusted to suit current needs of the member agencies. This schedule is typical of successful flight operations. By scheduling at least 5 to 6 flight hours per day, during the times of highest demand,we can provide the greatest impact on regional crime. e. One of the air crews would be designated as the "on calf' response unit,when no patrol flights are scheduled or during days off. E Scheduled patrol flights may end at 2400 hours due to sound level control, but the schedule could be adjusted for a special need by a member agency. g. Weather conditions such as fog, low clouds or very high winds may also affect scheduled patrol flights. If a flight is canceled, then the budgeted flight time will be rescheduled. This will actually allow for some schedule flexibility. 16 h. Air crew schedules will need to be flexible and adjustable due to the proactive nature of the assignment. This.will reduce the need for overtime expenditures. 5. Operational Policies and Procedures a. A proposed Air Operations Manual is attached for review. This manual was compiled from a variety of policies and procedures which are in current use within airborne law enforcement units around this state. b. This manual has been reviewed by an insurance carrier and is subject to further evaluation by the Board of Directors. c. Air Support units run their day to day functions around the written policies and procedures as they appear in their operations manuals. d. The operations manual is a living document and needs to be current, relevant and promote safety. 6. The Purpose of Regional Air Support a. The focus of this program is to support the patrol operations of the member agencies, assist in crime suppression and to improve the delivery of police services to the participating communities. b. All of the policies and procedures adopted for this program should be directed towards this purpose. VII. Regional Air Support Implementation Plan A. Marketing Regional Air Support 1. Educating our neighboring public safety agencies. a. In today's society, crime problems are regional in nature. b. Benefits that have been proven over the past 25 years. c. Affordable plan that delivers what is promised. d. Multimission capability. 17 e. Further coordination and study is needed with the County's fire departments for possible participation during next year's fire season. 2. Educating our neighboring communities. a. A need for Regional Air Support was recognized almost 25 years ago in this county. The same problems exist, but have grown worse. Three previous attempts to implement similar programs were not successful due to a variety of reasons. b. The City of Concord took the lead for this project and is making this resource available to the citizens of this region. c. Concord does not intend to control this program but rather to help create an independent organization to run an efficient and equitable program. d. Concord's managers and elected officials will need to meet with their counterparts in our neighboring communities in w order to win their confidence in this program. - 3. Address community concerns about sound level and privacy. a. Meet directly with various neighborhoods of the participating agencies to answer questions and explain the operation. b. Concord Cable TV for call-in forum type shows. Same approach in neighboring cities. c. Active presentations to civic groups. d. Public should be aware that Buchanan Field is already one . of the largest helicopter training airports in the country. One more helicopter should have little noticeable impact. e. Sound level will be about the same level as that for traffic on a major street. Previous aircraft sound studies place the Bell OH-58 at approximately 85 dB for a 500.foot above ground level flyover. Increased altitude reduces the sound heard. 18 The sound is very similar to.that of the helicopter currently flown by the California Highway Patrol within the Bay Area. L Buchanan Field already has an active sound reduction program which we will remain a willing part of. g. All department employees should be trained in handling sound related complaints. Based upon the experience of other agencies such as San Jose, great success has been realized by explaining why the helicopter was operating in a certain area or by offering follow-up telephone calls by air crew members. Once residents learn why a police aircraft is operating overhead, they typically become very supportive. 4. Meet with other City departments and community agencies. a. Educate and make presentations about how this service will assist them. 5. Community participation. a. Create a school or community contest for choosing a radio Call Sign for the Air Support unit. Within F.A.A. constraints the helicopters can have a discreet call sign issued. Examples are; Air One (San Jose),Argus (Oakland) and Eagle (Regional Parks Police). b. Community participation helps in their ownership of the program. 6. Guarantee Accountability a. Assure member agencies that this is their Air Support resource. b. Give member agencies what they pay for. c. Maintain records of all relevant statistics. In example; Criminal activity observed by air crew and where. All assigned details, by member agency. Fires reported by air crew and nature of assistance. Citations or arrests made by air crew. 19 V Ar,- Request for assistance by patrol units. Cover call requests,times and locations. Surveillance's, locations,nature,time spent. Rescue assistance,time and location. All arrests assisted with, location. Aerial photographs,evidence and surveillance. Total flight hours. Response times to calls for service. All costs of helicopter operations. Record of Part I crimes handled and location. Estimated Cost of Recovered Property (All other items deemed necessary) B. Beginning the Regional Air Support Operation. 1. Form the non-profit corporation with member agencies. a. All necessary forms are available to be submitted. b. Name the corporation. In example, Diablo Air Wing, Delta Air Support,.or Multi Agency Support Helicopter M.A.S.H. The choices are numerous. c. Rent office. The hangar which is currently used to house the helicopters also offers a conference room for use. It is located in the adjacent Airport Manager's Office. Office space is available for rent through Concord Jet Service at the same facility. This offers a centralized, secure and professional base for operations. d. Fund and purchase the equipment for the helicopters. This includes selecting the paint scheme and painting them. f. Select insurance vendor for appropriate liability coverage. This is typically for 5 to 10 million dollars of coverage. The estimated premium for this coverage is included in the T.O.C. 20 g. Select and train pilots and air crew personnel. Pilots are currently employed at several of our neighboring police agencies, depending upon who participates. Additional flight training or flight time may be needed. h. Contract pilots can be utilized at approximately$24.00 per hour($35.00 per hour standby) until available pilots have met the minimum insurance requirements, if there are any. That will only take two to three months. Estimated cost for the contract pilots runs about$2300 per month, but will result in lower insurance costs initially. i. F.A.A. registration numbers have been issued. j. Start flying and fighting crime. A variety of sources were utilized to prepare this report. Sound advice from experts in airborne law enforcement proved to have the greatest value. The aircrew staffs from the following agencies provided constant and enthusiastic support; San Jose Police, Oakland Police, California Highway Patrol, Drug Enforcement Administration and the Regional Park Police. Members from the Airborne Law Enforcement Association and the Northern California Airborne Law Enforcement Organization provided a national network of information and experts. This report is full of data and recommendations for implementing a Regional Air Support operation in Contra Costa County. It remains a veryflexible plan which can be tailored to the needs of the region it is intended to serve. MARCH 27,1996 21 �` .�' .vim' i �-•-••"ter''" 1 1, ' l-- �-•`"`�'r i1 iso \ �l�i' � _; o '``. P I II it it t V, = I ;= •ice i- Z ce 3 s t g ,r t UAI {{ r � f•,� ' � I� « 'fin .i �• - �y ��� _ •;,, � i� ;� ani,� ��,,,,,� � -: t " 1 , o i3 .....3 s ' t. . 1 3 t T a Al {' W CD, O O O O O O O O O O O O O O O O O O O O W e� d• N r. 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REGIONAL AIR SUPPORT MULTI-AGENCY COALITION TIME LINE 5/9/95 Concord City Council authorization to accept two Bell OH-58, helicopters from the Department of Defense, Regional Logistics Support Office. No acquisition cost. 5/24/95 Concord Police Department receives the two OH-58 helicopters from the Wisconsin Army National Guard at Truax Field, Madison, Wisconsin. Begin flight to Concord, California. . 5/26/95 Arrive in Concord, California with the two helicopters. 8/1/95 Feasibility Study for Multi-Agency, Regional Air Support is in progress. 9/8/95 Move aircraft from outside storage at Navajo Aviation to inside hangar storage at Concord Jet Service. Facility capable to act as future base of operations. 3/12/96 Feasibility Study complete for City Council presentation. 4/9/96 Concord City Council study session for implementing the Regional Air Support Plan. A. Recruitment of neighboring communities, public safety agencies and local governments for participation. B. Authorization to begin maintenance test flights of aircraft. 4/96 Identify participating communities and agencies in Regional Air Support Coalition. 5/96 Draft articles of incorporation, bylaws and tax exempt applications for non profit, public benefit corporation, utilizing Concord City Attorney. 5/96 Participating member agencies sign articles of incorporation creating the Regional Air Support coalition. A. Appoint Board of Directors B. Establish Treasury C. Name Corporation 6/96 Rent office at hangar facility. 6/96 Air-Crew members assigned from member agencies. A. Assign personnel to appropriate air crew/pilot training. 6/96 Begin to equip aircraft for police and fire support capability. A. Avionics/Radios B. Searchlight/Forward Looking Infrared(FLIR) 6/96 Commence training of member agencies' patrol, investigative and dispatch personnel. A. Utilization of Air Support 6/96 Public relations campaign to further educate the public in the utilization of the air support resource. A. Multi-media B. Roof painting of addresses C. Strobe lights utilized with alarm systems, etc. 7/1./96 Begin Regional Air Support operation. A. Follow-up with monthly status reports for member agencies. IX. REGIONAL AIR SUPPORT BENEFIT EXPECTATIONS FOR THE COMMUNITY • REDUCE OR ELIMINATE "FEAR OF CRIME" • FAST RESPONSE FOR EMERGENCY CALLS FOR SERVICE • MORE EFFICIENT POLICE RESPONSE • IMPROVED POLICE RESOURCES FOR INTERVENTION PROGRAMS • REDUCE CRIME RATE IN CERTAIN CRIME CATEGORIES • REDUCES COSTS OF VICTIMIZATION • COMMUNITY "QUALITY OF LIFE" IMPROVED FOR LOCAL GOVERNMENT LEADERS AND MANAGERS • ABILITY TO EFFECTIVELY ADDRESS COMMUNITY CRIME ISSUES • CRIME PROBLEMS DEALT WITH LOCALLY AND/OR REGIONALLY • REDUCE DANGER AND LIABILITY DURING POLICE PURSUITS • RESIDENTS RECOGNIZE GOVERNMENT'S COMMITMENT TO SAFETY • MORE EFFICIENT USE OF POLICE RESOURCES • IMPROVED PREPARATION FOR DISASTERS, ie; EARTHQUAKES/FIRES • REGIONAL PLAN SHARES COSTS, MAKING IT AFFORDABLE _ • REDUCES NEED TO ADD OFFICERS, SAVING PERSONNEL COSTS FOR PUBLIC SAFETY MANAGERS • IMPROVED EFFICIENCY OF OVERALL POLICE RESPONSE • AIR SUPPORT IS "FORCE MULTIPLIER" • TWO AIRBORNE OFFICERS CAN MAINTAIN A COMPLETE PERIMETER • IMPROVED SAFETY TO PATROL OFFICERS • REDUCED DEPARTMENT LIABILITY DURING VEHICLE PURSUITS • INCREASED APPREHENSION RATES • EFFECTIVE TOOL FOR GANG AND NARCOTIC INTERDICTION • MULTI-MISSION CAPABILITY, ie; SWAT, PHOTOS, SEARCH, PATROL FREES OFFICERS FOR COMMUNITY ORIENTED POLICING PROGRAMS • RESIDENTS RECOGNIZE DEPARTMENT'S COMMITMENT TO SAFETY FOR POLICE OFFICERS • INCREASED TACTICAL SAFETY • GREATLY ENHANCED SAFETY DURING VEHICLE PURSUITS • POLICE AIRBORNE PRESENCE IMPROVING SAFETY AND ARRESTS • FEWER OFFICERS NEEDED FOR SEARCHES AND PERIMETERS • MORE SUCCESSFUL SEARCHES FOR SUSPECTS • INCREASED SATISFACTION WITH IMPROVED POLICE RESPONSE • MORE TIME AVAILABLE FOR PROACTIVE ACTIVITY 0 OFFICER"ESPRIT DE CORPS" IMPROVED W 0 lu) :� M U, o Ich : ti et r a o O I N It i u) ch ; I CO ; 10 ! 9 ZICO 10i 0D 0 0 . « : 0 ; N ; 'V N ; iM r IM h r P. . 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Oi iAi ool V � CTI I CA ' j 00 ! 0) V i v i coI co W WI iCl1I ;W ; � . i41 i Im I n j 'tlfl Iii W t0 � W1 C0jA i Oi p ; W I I -� ! jG0 ItO �i ;O NI Ofi At IC1D N A (A ! m N EXHIBIT#2 DIRECT OPERATING COSTS (D.O.C.) WITHOUT PERSONNEL. DIRECT HOURLY OPERATING COSTS - Flight Hour (FH) (Based upon estimates by Bell Helicopter for 1000 flight hours per year) Fuel : 28 gal/hr at$2.00/gal $56.00 Lubricants: 3% of fuel 1.68 AIRFRAME DIRECT MAINTENANCE - LABOR $45.00/Man Hour (MH) Inspections (0.220 MH/FH) 9.90 Overhaul (0.100 MH/FH) 4.50 Unscheduled and on-condition (0.372 MH/FH) 16.74 PARTS - Inspections 2.37 Overhaul 10.17 Retirement 26.66 Unscheduled and on-condition 26.04 POWERPLANT DIRECT MAINTENANCE - Overhaul (including accessories) 49.90 Line Maintenance (parts and labor) 3.00 AVERAGE COST PER HOUR $206.96 Hangar (annual $9,000, including office) 9.00 Insurance (annual estimate $30,000.00) 30.00 Replacement Reserves 57.04 TOTAL AVERAGE COST PER HOUR $303.00 Our expenditures are directly related to the number of hours that we wish to fly. MARCH/8./996 EXHIBIT#2a TOTAL OPERATING COSTS (T.O.C.) WITH TWO PILOTS ASSIGNED TO PROGRAM OBSERVERS FILLED BY LATERAL ASSIGNMENTS OR VOLUNTEER RESERVE OFFICERS DIRECT HOURLY OPERATING COSTS. - Flight Hour (FH) (Based upon estimates by Bell Helicopter for 1000 flight hours per year) Fuel : 28 gal/hr at$2.00/gal $56.00 Lubricants: 3% of fuel 1.68 AIRFRAME DIRECT MAINTENANCE - LABOR $45.00/Man Hour (MH) Inspections (0.220 MH/FH) 9.90 Overhaul (0.100 MH/FH) 4.50 Unscheduled and on-condition (0,372 MH/FH) 16.74 PARTS - Inspections 2.37 Overhaul 10.17 Retirement 26.66 Unscheduled and on-condition 26.04 ' POWERPLANT DIRECT MAINTENANCE - Overhaul (including accessories) 49.90 Line Maintenance (parts and labor) 3.00 AVERAGE COST PER HOUR $206.96 Hangar (annual $9,000, including office) 9.00 Insurance (annual estimate $30,000.00) 30.00 Replacement Reserves 58.04 Personnel - Two Pilots, 2080 hours/yr 149.00 One Observer, 1000 flight hours/yr 36.00 TOTAL AVERAGE COST PER HOUR $489.00 Using this hourly cost,we can adequately cover all expenses. 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CO00 � ; N : CD N : o . W Q A Q CO _ a CL U Q Z � - N : ! N 1 M 1 � ? N LL V) a W O 0. W Co li o U Q jCl) .o CO �- MNV C <M i O LO 0) Lf) r` 0 CA N Cl) LLJ VI z e o \ o \ \ o o o I O OO o co L O Lo a0 - O M O (L r r r M r U z z co Q O m � v rn 0O Co � ; I � N N ' 'V O CV to ; m d r co CO • M i CU : f� � Q IL j J w . o w N 2 ' Z Q W U Q ~ H N , 0 W Fa- CD Ur Z O n d' ! F` Z ' wi. Q LIJ IL a a � M CONTRA COSTA REGIONAL LAW ENFORCEMENT HELICOPTER UNIT AIR OPERATIONS MANUAL APRIL 1995 J qa CONTRA Cosm REGIONAL LAw ENFORCEMENT HELICOPTER UNrr AJR OPERATIONS MANUAL Table of Contents Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ... . . . 1 ChapterOne . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ... . . . . . . . . . . . . . . . 2 1.0 Purpose and Authority . . . . . . . . . .I. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2 1.1 Purpose ... . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2 1.2 Revisions . . . . . . . . . ... . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2 ChapterTwo . . . . . . . . . . . . . . . . . . . ; . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3 2.0 Unit Organization . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ... . . . . . . . . . . . . . . . . . . . 3 2.1 Assignment. . . . . . . . . . . . . . . . . . . . . . . . . . . . .I . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3 2.2 Sergeant . . . . ... . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ..3 2.3 Chief Pilot . . . . . . . . . . . . . . . . . . . . .. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3 2.4 Training Officer .. . . . . . . . . . . . . I. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3 2.5 Maintenance Officer . . . . . . . . . . . . . . . . . . . . . . . . . ... .. ... . . . . . . . . . . . . . . . . . . . 4 2.6 Safety Officer .. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4 2.7 Pilot in Command . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4 2.8 Police Tactical Observer. . . . . . . . . . . . . . . . ... . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5 2.9. Certified Flight Instrucitors(CFI) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5 ChapterThree . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. ... . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 3.0 Unit Operating Procedures Common to Helicopter Operations . . . . . . . . . . . .I. . . . . . . . 6 3.1 Crew Conduct . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ... 6 3.2 Medical Certificate/Pi lot's License . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 3.3 Flight Safety . . . . . . . . . . . . . . . . . . . . . . . . . . .I . . . . . . . . . . . . . . . . . . . . . . . .. . . . . . . . . . . . . . . . . . 6 . 3.4 Limitations- Instrument Flight Rules . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 3.5 Flight Cancellation.. . . . . . . . . . . . . . . . . . . . . . . .. . . . . . . . . . . . . . . . . . . . .. . . . . . . . 6 3.6 Cancellation Due To Weather . . . . . . . ... . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 3.7 Altitude Limitations . . . . . . . . . . . . . . . . . ... . . . . . . . . . . . 7 3.8 Loading Instructions- Passengers . . . . . . . . . . . .. . . . . . . . . . . . . . . . . . . . . . . . . . .. . 7 3.9 Federal Aviation Administration Regulations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7 3.10 Prohibited/Restricted Maneuvers . . . . . . . . . . . . . . . ... . . . . . . . . . . . . . . . . . . . . . 7 3.11 Ceilings and Visibility Requirements for Routine Helicopter Operations . . . . . . . 7 3.12 Citizen Complaints . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. . . . . . . . . . . . . . . . . . 7 3.13 Internal Communications . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8 3.14 Pre-Flight Inspections . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8 3.15. Post-Flight Procedure . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8 3.16 Required Reports . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8 3.17 Out-of-Area Flights . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9 3.18 Refueling Procedures . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9 , 3.19 Pilot and Observer Physical Condition . . . . . . .. . . . ... . . . . . . . . . . . . . . . . . . . . . . 10 3.20 Landing Sites . . . . . ... . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10 CONTRA Cos-rA REGIONAL LAw ENFORCEMENT HELICOPTER UNIT AIR OPERATIONS MANUAL Chapter Four . . . . . . . . . . 12 4.0 Uniforms . . . . . . . ... . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12 4.1 Guidelines . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12 4.2 Flight Crew Protective Equipment . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12 4.3 Ear Protection Device . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12 4.4 Chemical Mace . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ... . . . . . . . . . . . . . . 12 ChapterFive . . . . . . . . . . . . . . . ... . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ... . . . . . . . . . . . . . . . . 13 5.0 General Helicopter Patrol Operations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13 5.1 Patrol Policy-Mission Priorities . . . . . . . . . . . .. . . . . . . . . . . . . . . ... . . . . . . . . . . 13 5.2 Deployment Priorities . . ... . . . . . . . . . . . . .. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13, 5.3 Minimum Altitude . . . . . . . . . . . . . . . . . . . . . . . . ... . . . . . . . . . . . . . . . . . . . . ... . . 13 5.4 Flight Duration . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13 5.5 Standby Readiness . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13 5.6 Code Four . . . . . . . . . . . . ... . . . . ! . . . . . . . . . . . . . . . . . . . . . . . . . . ... . . . . . . . . . 14 5.7 Vehicle Pursuits , . . . . . . . . . . . . . . . . . . . .. . . . . . . . . . . . . . . . . . . . . 14 5.8 Use of Specialized Equipment . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14 5.9 Safety Rules For Approaching/Leaving The Helicopter . . . . . . . . . . . . . . . ... . . . . 15 ChapterSix . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ... . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16 6.0 Flight Crew Operational Procedures . . . . . . . . . . . . . . ... . . . ... . . . . . . . . . . . . ... . . . . . . . 16 6.1 Flight Crew . . . . . . . . . . . . ... . . . . . . . . . . . . . . . . ... . . . . . .I. . . . . . . . . . . . . . . . . . 16 6.2 Pre-Flight And Mission Brief . . . . . . . . . . . . . . . . . . . . . .. . . . . . . . . . . . . . . . ... . . . 16 - 6.3 Pre-Take Off Checks . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .*. . . . 16 6.4 Radio.Communication Procedures . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17 6.5 Crew Concept . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . ... . . . . . . . . 18 ChapterSeven . . . . . . . . ... . . . . . . . . . . . . . . . . . . . ... . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19 7.0 Mutual Aid . . . . . . . . . . . . . . .I . . . .. . . . . * * 19 71 Assistance to County Fire Departments . . . . . ... . . . . . . . . . . . . . .. . . . . . . . . . . . . 19 7.2 Response to Assist Outside Agencies . . . . . . . ... . . . . . . . . . . . . . . . 19 7.3 Passenger Ride-Along Program . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .I. . . . . 20 7.4 Transportation For Reasons Other Than Law Enforcement Purposes .I. . . . ... . . . 20 CONTRA COSTA REGIONAL LAw ENFORCEMENT HELICOPTER UNrr AIR OPERATIONS MANUAL Introduction No one document or even a collection of documents can possibly outline every conceivable event that may confront a police flight crew. However, in order to gain the compliance for specific requirements and an appreciation for general necessities,the helicopter air support unit manual exists. This manual is supplemented by appropriate federal, state and local regulations and by Department orders and procedures.Together these and verbal communications constitute the nucleus for the safe conduct of the unit's operation. 1 CONTRA COSTA REGIONAL LAw ENFORCEMENT HEUCOPTER UNrT AIR OPERATIONS MANUAL Chapter One 1.0 Purpose and Authority 1.1 . Purpose This publication presents a consolidation of information, procedures, rules and guidelines for the operation of the Contra Costa Regional Air Support Unit. It complements existing procedures and policies of the Concord Police and other participating agencies, manufacturer's flight manuals, Federal Aviation Regulations, and other pertinent information relating to flight operations. While it provides the best possible operating instructions under most conditions, it is not a substitute for sound judgment. Safety supersedes all other factors considered in the operation of assigned aircraft. This operations manual has the same authority as a Department order and is the definitive authority for the Contra Costa Regional Air Support Unit. However,when a conflict exists, the appropriate policies and procedures of the participating agencies shall apply. 1.2 Revisions Revisions of the operations manual will be issued in a timely manner as changes in regulations, policies, or procedures occur.The Air Support Unit sergeant shall distribute revisions to each manual holder. It will be the responsibility of each manual holder to maintain a current and up-to-date manual.All employees are encouraged to submit written or oral suggestions for manual changes that will increase the efficiency, effectiveness, or safety of unit operations. J 2 ° C •qo CONTRA COSTA REGIONAL LAw ENFORCEMENT HELICOPTER UNrr AIR OPERATIONS MANUAL Chapter Two 2.0 Unit Organization 2.1 Assignment Members of the Air Support Unit- Helicopter section will be assigned to the.Field Operations Division. 2.2 Sergeant The sergeant assigned to the Air Support Unit(ASU)will perform and be responsible for the following: ' a. Supervise subordinate Personnel assigned to the unit. b. Train personnel as required. C. Ensure that all ASU personnel comply with Federal Aviation Regulations and department rules and regulations. d. Ensure that aircrews maintain a current knowledge of crime problems and trends in their assigned area. e. Complete required management reports. f. Review and record daily activity of the unit. g. Perform pilot/observer duties as needed or required. 2.3 Chief Pilot The chief pilot assigned to the air unit will perform and be responsible for the following: a. Establish and assess flight standards for air support operations, in concert with the ASU sergeant. b. Conduct annual standardization and proficiency flight evaluations for ASU pilots... C. Coordinate and monitor training programs and train personnel as required. d. Monitor maintenance programs for all assigned aircraft. e. Maintain liaison with 1. FAA 2. Federal Air Traffic Control Centers 3. California Division of Aeronautics 4. NTSB f. Research and coordinate all changes to aircraft, including selections and installation of new or replacement equipment. g. Monitor budget expenditures relating to maintenance of all aircraft. h. Act as the deciding authority for flight operations in the absence of the unit supervisor. 2.4 Training Officer The training officer assigned to the air unit will perform and be responsible for the following: a. Possess a current flight instructor rating(rotor wing). b. Conduct ground and flight training programs for all current flight personnel and newly assigned pilots. C. Maintain Air Support Unit training records for all flight personnel. 3 CONTRA COSTA REGIONAL LAw ENFORCEMENT HELICOPTER UNrr AIR OPERATIONS MANUAL d. Keep up-to-date visual display boards for all assigned personnel qualifications and , training. 2.5 Maintenance Officer The maintenance officer assigned to the Air Support Unit will perform and be responsible for the following: a: Schedule and ensure that maintenance on all aircraft is completed in a timely manner. - b. Coordinate or conduct minor repairs and cleaning of all aircraft with assistance of other unit members. C. Conduct acceptance flights for aircraft receiving major repairs or overhauls. d. Perform test flights as necessary. e. Follow-up aircraft part orders to ensure timely installation. f. Ensure aircraft are available for all scheduled operations. g. Inspect aircraft for wear quarterly and report on major replacement items needed for future budgets to unit sergeant. h. Maintain updated maintenance records and status boards on all unit aircraft. 2.6 Safety Officer The Safety Officer assigned to the Air Unit will perform and be responsible for the following: a. Identify and evaluate safety problem areas. b. Develop a viable safety program for the Air Support Unit. C. Conduct safety orientations for new personnel. d. Conduct periodic training in the areas of aviation safety. e. Participate in ALEA, HAI, and other similarly sponsored safety seminars, surveys and programs. f. Disseminate current safety information from the aviation industry, aviation schools and seminars to all Air Support Unit personnel. g. Maintain ready reference files of aviation safety literature. h. Establish a current mishap prevention program for the Air Support Unit. I. Develop safety procedures for ground personnel. j. Investigate, report and critique any mishaps involving Department or other law enforcement aircraft. k. Maintain liaison with FAA personnel regarding safety issues. I. Conduct safety training for non-flying police personnel. 2.7 Pilot in Command The pilot in command's primary duty is the safe and effective operation of Department aircraft in accordance with federal aviation regulations,the aircraft operator's manual and unit procedures. Every pilot in command will remain current in all phases of Department operational requirements.The pilot in command is the ultimate authority aboard the aircraft regardless of the rank of any other person aboard. Only pilots who have been approved by the sergeant and who are named in the Unit's insurance policy may be assigned as-pilot in command. 4 CONTRA COSTA REGIONAL LAw ENFORCEMENT HELICOPTER UNIT AIR OPERATIONS MANUAL 2.8 Police Tactical Observer The tactical observer is responsible for ensuring the aircraft is properly outfitted with all equipment necessary to accomplish its mission.When operational, the tactical observer will: a. Monitor the police radio and respond to calls where the helicopter would be most useful. b. Observe activity on the ground. C. Direct tactical operations of the aircraft after units are assigned. d. Advise the pilot in command where to fly via geographic points and when to orbit when engaged in any police activity. e. Operate all special equipment(lights, PA system, siren, etc.). f. Assist the pilot in command in flying the aircraft.as needed. g. Monitor critical engine instruments during take off and landing. h. Scan for traffic. 2.9 Certified Flight Instrucitors (CFI) All unit pilots are encouraged to advance to the Certified Flight Instructor rating. 5 CONTRA COSTA REGIONAL LAw ENFORCEMENT HELICOPTER UNrr AIR OPERATIONS MANUAL Chapter Three 3.0 Unit Operating Procedures Common to Helicopter Operations 3.1 Crew Conduct All Air Support Unit personnel will conduct themselves in a professional and safety conscious manner. Safety is the first consideration for all operations. Under normal conditions, operations will be conducted in accordance with existing Department policies,federal aviation regulations and the rules and procedures outlined in this manual: 3.2 Medical Certificate/Pilot's License All pilots will maintain a current Class II medical certificate and commercial pilot's license, in accordance with federal aviation regulations, and will maintain a copy in the unit's personnel file. 3.3 Flight Safety a. No flight will be performed in a manner deemed to be unsafe by the pilot in command. b. Pilots will make every attempt to provide'timely support to ground units when it can be done safely. If a request or direction is received to perform an unsafe maneuver or to land in an unsafe area,the pilot in command will respectfully explain that he cannot perform the maneuver for reasons of safety. C. Public, crew, and aircraft safety are the principle considerations in determining whether or not a particular request is performed. Good judgment and common sense should prevail. 3.4 Limitations - Instrument Flight Rules a. ASU pilots are limited to operations that conform to their pilot ratings and restrictions mandated by the Air Support Unit. b. Careful evaluation of the weather, en route and at the destination, must be made prior to the start of each flight. Under no circumstances should an aircraft take off from a location where weather conditions would prevent returning for landing at that airport. C. Under no circumstances will any helicopter flights be initiated when the actual or forecast weather is expected to be less than visual flight rules pursuant to FAR 91.155 and 91.107. 3.5 Flight Cancellation A pilot in command may cancel a scheduled flight at any time,for any legitimate reason. The Unit Supervisor is to be notified immediately. 3.6 Cancellation Due To Weather Any pilot in command may cancel a flight due to weather restrictions. In questionable ' cases, the unit supervisor may be consulted.Any cancellation of a scheduled helicopter patrol flight.must immediately be brought to the attention of the watch commander and 6 CONTRA COSTA REGIONAL LAw ENFORCEMENT HELICOPTER UNfr AIR OPERATIONS MANUAL Communications supervisor.Appropriate entry will be made in the daily flight log reflecting the flight cancellation. 3.7 Altitude Limitations a. Aircraft shall be flown at an altitude which best minimizes ground noise and yet allows safe and effective completion of the mission. b. While on routine patrol, helicopters will not descend below 500 feet above ground level(AGL)during daylight hours;700 feet AGL at night. c. Aircraft normally should not be operated below an altitude which will allow a safe emergency landing. 3.8 Loading Instructions - Passengers. Pilots will ensure their aircraft conforms to proper weight and balance specifications prior to flight. a. When loading passengers, the flight crew will make certain that they are secured properly with seat belts and are instructed on emergency procedures and proper operation of seat belts and equipment. b. When transporting equipment or materials,the flight crew will secure all objects.. 3.9 Federal Aviation Administration Regulations All federal aviation regulations and manufacturer's manual guidelines are to be followed under normal operations.Where a conflict exists between the'FAR's and this manual,the FAR's shall prevail. 3.10 Prohibited/Restricted Maneuvers a. Aerobatic flight is prohibited. b. Careless or reckless maneuvers are prohibited. C. Practice power-off maneuvers are prohibited without prior approval by the Air Support Unit sergeant. 3.11 Ceilings and Visibility Requirements for Routine Helicopter Operations a. Eight hundred (800)feet ceiling and one mile visibility. 3.12 Citizen Complaints Complaints about noise or operating procedures will be forwarded to the ASU sergeant for investigation.The sergeant will determine if the complaint should be logged as procedural and/or investigated within the unit or should be referred to I.A. In-any event, the ASU sergeant will log all complaints and their disposition.The log shall be kept at the ASU office and available for command officer or I.A. review. Whenever practical, all complainants will be contacted and advised of the nature of the operation that caused the complaint, if these facts can be determined. Complainants will also be advised of the final disposition of any complaint. 7 CONTRA COSTA REGIONAL LAw ENFORCEMENT HELICOPTER UNIT AIR OPERATIONS MANUAL 3.13 Internal Communications On all Air Support Unit flights,the FAA recommendation of a "sterile cockpit" will be observed.This means that all cockpit conversations on radios and ICS will be limited to that necessary for operation of the aircraft or the mission when landing or taking off, within five miles of an airport,and when near a helicopter landing pad or known traffic corridor. 3.14 Pre-Flight Inspections Prior to all flights,the pilot in command is responsible for ensuring that the following tasks are completed: a. The aircraft is in airworthy condition. b. It is fueled. C. It is properly loaded. d. The aircraft flight log book is reviewed to ensure all required inspections have been performed, discrepancies have been noted, and the planned flight will not exceed any flight time limitations necessary to comply with required inspections, airworthiness directives, service or other mandatory procedures. e. Inspection of all applicable fluid levels. f. Draining of appropriate fuel sumps. g. Thorough inspection of fuselage for damage. h. Inspection of all aircraft lights. I.. General inspection of power plant,transmission and rotor assemblies. 3.15 Post-Flight Procedure After all flights, the pilot in command is responsible for ensuring that the following tasks are completed: a'. At the completion of each flight,the aircraft will be refueled. b. All fluid levels will be checked. C. Overall inspection for damage, defects, or oil leaks. d. Aircraft pre-flight inspections completed up to engine start cycle. e. Any flight-restricting condition to the aircraft must be reported to the maintenance officer or chief pilot as soon as practical. 3.16 Required Reports All required reports shall be completed and submitted prior.to the end of each shift. Deviation from this policy will require the express approval of the Aero Unit Supervisor or Watch Commander in his absence.The following are required reports as defined by this section: a. Daily Flight Log It shall be the responsibility of the Observer crew member to complete the Daily Flight Log for each shift.The Daily Flight Log will reflect an accurate account of the shift's activity and document circumstances such as response to dispatched and self initiated events, passengers transported, emergency landings, occasions where the aircraft was operated below minimum altitudes established by this manual, occasions where the aircraft was operated outside the primary response area, and 8 - CONTRA COSTA REGIONAL LAw ENFORCEMENT HELICOPTER UNrrAIR OPERATIONS MANUAL any other pertinent facts relative to the operation of the aircraft and activity by the crew. The Daily Flight Log is considered an official police report and will be completed as such with particular respect to thoroughness, neatness,and accuracy. b. Aircraft Incident Report Shall be the responsibility of the Pilot in Command or Unit member responsible for the aircraft at the time the incident or damage is discovered. c. Aircraft Logbook This is the individual logbook maintained in each aircraft, and it shall be the Pilot in Command's responsibility to complete prior to going off duty.The Aircraft Maintenance Log Book will also be checked to determine that the last required inspection had been performed. d. Departmental Reports These are crime reports, supplemental reports, citation notes, mutual aid reports, or any other departmental report that is generated from that tour of duty. It shall - be the Observer's responsibility to complete these reports prior to the completion of the workday. 3.17 Out-of-Area Flights a. All non-patrol related flights (example,training)that are flown out of Contra Costa County will have prior approval of the ASU Sergeant. Patrol related flights flown out of the primary response area will be handled as per Section 7.2 of this manual. Prior to all out of county flights,the PIC will obtain: 1. Current route and destination charts. 2. Present and forecast weather information for all reported points along the projected route. 3. File a flight plan with both the unit and the FAA. b. Out-of-state flights must be approved by the governing board. 3.18 Refueling Procedures a., The pilot in command is responsible for ensuring that the aircraft is refueled properly. b. Under normal operations, refueling the aircraft while the engine is running is prohibited. C. All passengers and non-essential personnel will remain at least 50 feet from the... aircraft. d. Confirmation will be made to ensure the proper grade and quality of fuel is used. e. There will be no smoking within 50 feet of the aircraft at any time. 9 CONTRA COSTA REGIONAL LAw ENFORCEMENT HEUCOPTER UWAR OPERATIONS MANUAL 3.19 Pilot and Observer Physical Condition Pilots and Observers are to ensure that their physical condition is maintained at a sufficient level to complete their mission.This includes: a. Sufficient rest and nourishment b. No use of alcohol for 12 hours before a flight C. Crew members who are using any medication that will affect their flight status will report the use to the Air Support Unit supervisor prior to any duty assignment. d. Refrain from donating blood within 72 hours of a flight. e. Suggested limits of flight time should not exceed 8 hours in any 24-hour period nor 100 hours in any four-week period without prior approval from the unit supervisor. 3.20 landing Sites a. Authorized landing sites: The pilot in command of a helicopter is authorized to land the aircraft at the following locations: • Any airport;. • Remote locations when an investigation or a mission requires the landing. • Private or public property for static display. Prior permission to land must be obtained from the property owner and the Air Support Unit sergeant. • At any location when providing emergency services. In any event, all off-airport landings will be attempted only after both pilot and observer have visually inspected the area and the site has been determined to be free of obstructions. All necessary precautions will be taken to ensure that the off-site landing can be done safely without personal injury or property damage. All off-airport landings will be recorded on the daily flight log. b. Precautionary landings When the pilot in command decides a precautionary landing is necessary, he will make a normal landing at a safe landing site.Air Traffic Control and Police Communications.should be notified of the intentions prior to landing if at all possible.The Air Support Unit supervisor will be contacted after landing to discuss the difficulty or damage. C. Emergency landings Should a controlled or semi-controlled auto rotation make an immediate landing necessary, the pilot will make every effort to safely touch down. If time and control permit, the aircraft's transponder should be set to the emergency code(7700). ` Communicate the emergency to Air Traffic Control and Police Dispatch, requesting emergency equipment be dispatched to your intended landing sight. If the landing is uneventful, notify radio of your status and have all emergency equipment cancelled. Request that the Air Support Unit supervisor immediately respond to the scene. 10 CONTRA COSTA REGIONAL LAw ENFORCEMENT HELICOPTER UNrr AIR OPERATIONS MANUAL d. Notification of chain of command 1. Following a precautionary landing,the following individuals will be notified immediately: a) Air Support Unit supervisor . b) Watch Commander c) Chief pilot d) Safety officer 2: Following an emergency landing,the following individuals will be notified immediately: a) Air SupportUnit supervisor b) Watch Commander c) Chief pilot d) Chief(contract) mechanic e) Safety officer 3. After receiving notification,the Air Support Unit supervisor will go to the scene, assess the situation and make recommendations as to necessary field repairs or transportation of the aircraft to a repair facility.The chief(or contract) mechanic will be notified and consulted before the aircraft is moved or flown. e. After a precautionary or emergency landing has occurred,the following events will take place: 1. The pilot, in all cases, and the observer, if necessary,will prepare memoranda relating all details surrounding the precautionary or emergency landing.The typewritten memoranda will be submitted to the Air Support Unit supervisor as soon as practical after the incident but no later than close of the following work day. 2. Upon receipt of the memorandum(s),the Air Support Unit supervisor will take whatever action is appropriate to the specific situation. f. If an aircraft accident occurs, the Air Support Unit supervisor or his designee will be responsible for notification to and liaison with the National Transportation Safety Board and the Federal Aviation Administration. CONTRA COSTA REGIONAL LAw ENFORCEMENT HELICOPTER UNrr AIR OPERATIONS MANUAL Chapter Four 4.0 Uniforms 4.1 Guidelines All grooming, dress and regulation uniform guidelines are set forth in the Department's Policy Manual.These regulations are applicable to all helicopter flight crew officers assigned to the Air Support Unit. h 4.2 Flight Crew Protective Equipment The following items will be worn by flight crews at all times when operating Department helicopters: a. Flight helmets b. Flight suit made of Nomex fire retardant material C. Nomex fire retardant gloves d. Flight boots 4.3 Ear Protection Device At all times when in or around an operating helicopter, appropriate hearing protection will be worn by all crew members and passengers. r 4.4 Chemical Mace Chemical mace shall not be'carried inside the cabin of any aircraft during flight operations. Chemical mace may be transported within a baggage compartment only if the area is separate and isolated from the passenger cabin. 12 CONTRA COSTA REGIONAL LAw ENFORCEMENT HELICOPTER UNrr AIR OPERATIONS MANUAL Chapter Five 5.0 General Helicopter Patrol Operations 5.1 Patrol Policy- Mission Priorities The helicopter program's primary purpose is to improve efficiency through swift response to life-threatening incidents, air support of ground units and increased observation through aerial patrol. In order to maximize effectiveness and to establish a basis upon which decisions can be made in the event of simultaneous requests,the pilot in command will determine the priority of the missions based on: • Life-threatening event • Protection of property • Daily law enforcement patrol • Availability of crew and aircraft • Weather conditions 5.2 Deployment Priorities Daily patrol areas will be assigned by the unit supervisor based on the following criteria: a. Calls for service b. Types of calls(officer safety, priority, etc.) C. Response time vs. effectiveness d. Extra patrol requests e. Known crime problems/trends through the Crime Analysis Units of the participating agencies Special events may occasionally take priority over routine missions as determined by the unit supervisor. 5.3 Minimum Altitude a. Altitude should be adjusted to a point where there is adequate visibility of the location with a minimum of aircraft noise. b. . When covering patrol officers, helicopters will not descend below 200 feet because the aircraft noise may prohibit ground officers from communicating with each other and it reduces the observer's field of view. C. Consideration should be given to respond at the best,yet safest altitude. Every attempt should be made to lessen ground noise. 5.4 Flight Duration a. Each flight period should be approximately two hours. b. All flights will be terminated 20 minutes prior to fuel exhaustion. 5.5 Standby Readiness When not airborne, on-duty flight crews will be ready and available to respond to any emergency. 13 CONTRA COSTA REGIONAL LAw ENFORCEMENT HELICOPTER UNIT AIR OPERATIONS MANUAL 5.6 Code Four Although a cover situation may appear "Code 4" to the air crew, only ground units will advise "Code 4" on the radio. Once notice has been given,the air crew will advise Communications that they are returning to service and will depart the area as soon as practical. 5.7 Vehicle Pursuits a. When a pursuit occurs,the police helicopter will respond without a request from the involved ground units. Once the police helicopter has arrived on the scene and the observer has established visual contact with the pursued vehicle and believes that it can best handle the pursuit, the helicopter observer shall advise the pursuing units.The pursuing units will then relinquish the pursuit to the helicopter, reduce their response to Code One, and follow the suspect vehicle at a normal, safe speed. Often this action makes high speed chases on the ground unnecessary as most fleeing suspects will slow down if they believe that pursuing units have abandoned the chase. If, in the judgment of the primary pursuit unit, the gravity of the offense, extenuating circumstances, or surrounding terrain dictate that he/she remain in close pursuit, the primary unit may maintain pursuit, and the helicopter will become the primary assisting unit. In any event,the Ground Field Supervisor will always have final authority to modify or terminate a' pursuit at any time. b. Upon assuming a pursuit,the police helicopter will 1. Notify Communications that they have taken over the pursuit. 2.. Ground units will then proceed Code One, at a safe speed, and follow the pursuit or place themselves in position for apprehension based on directions of the air unit. 3. The.helicopter observer will constantly update location, direction and speed of the suspect for ground units. 4. When the pursuit ends,the helicopter observer will maintain visual contact with the driver and continue to call any foot pursuit via radio and/or P.A. System. 5. 'The helicopter will depart the area as soon as possible when all suspects are in custody and officers have advised "Code 4." C With any helicopter assisted pursuit,the appropriate department policies (i.e., Supervisory Control During Pursuit)will prevail, and all units involved in the pursuit will abide by that Supervisor's orders. 5.8 Use of Specialized Equipment r a. Illumination 1. Upon arrival at a scene, the helicopter crew will establish exactly where the location is to be illuminated and provide illumination if necessary or requested. 14 CONTRA COSTA REGIONAL LAw ENFORCEMENT HELICOPTER UNrr AIR OPERATIONs MANUAL 2. The operator of the safety light must be aware that ground units will automatically be drawn to the point of illumination,whether right or wrong. 3. The safety light is extremely bright. Caution should be used to avoid blinding ground units and drivers or from disturbing residents. 4. When illuminating moving vehicles, adjust the speed to that of the suspect vehicle and illuminate it from the rear or side. b. Public Address System For the most effective broadcast, speak slowly and clearly while avoiding long and involved messages. C. Siren The siren may be used as needed before a broadcast to draw attention to the message, to warn pedestrians or vehicle traffic in a pursuit or to assist in clearing an intersection. Caution must be used as the siren may cause drivers to react in an unpredictable manner. 1 5.9 Safety Rules For Approaching/Leaving The Helicopter Passengers will be briefed by a qualified crew member prior to ride-along or transportation operations. Safety handout material will be made available to each passenger. a. All persons are to be kept at least fifty(50)feet away from the aircraft when the rotor blades are in motion unless authorized by the pilot. b. When approaching with the rotor in motion, do so only from the front or from the right side near the front, where the pilot can observe you at all times. Do so only after the pilot signals your approach. Neverapproach from the rear. C. Never approach or leave from any side where the ground is higher than the ground on which the ship is standing or hovering. d. When leaving with the rotor blades in motion, walk in a crouched position directly away to the right side or right front until fifty(50)feet away. Never exit to the rear toward the tail rotor. t 15 -90 CONTRA COSTA REGIONAL LAw ENFORCEMENT HELICOPTER UNrT AIR OPERATIONS MANUAL Chapter Six 6.0 -Flight Crew Operational Procedures 6.1 Flight Crew The Pilot assigned to the right seat is the Pilot in Command and is responsible for safety of the flight.The left seat crew member is the Observer, and is responsible for operational decisions not related to air traffic or safety of flight. For training flights or training while on patrol,the Pilot in Command may be in either seat. 6.2 Pre-Flight And Mission Brief a. The Pilot in Command is responsible for determining that the aircraft is in safe flying condition and conditions are safe for flight. Pre-flight planning includes: Examination of the aircraft, log books, outstanding and previously repaired discrepancies,weather'conditions,the mission, operation area, contacting units, information on suspects and coordination with Air Traffic Control. Pilots and Observers may divide these tasks, however,a thorough brief must be conducted prior to flight.Any discrepancies with an aircraft that affect the safety of flight must be corrected prior to flight. Equipment discrepancies which do not affect.safety or.. the mission should be noted for reference and evaluation. b. The mission brief should include radio frequencies for both ATC and Police Units, air space and possible conflicts,fuel on board, estimated length of mission, and special equipment required (binoculars, gyro stabilizer, camera and lenses, and portable radio with extra batteries). 6.3 Pre-Take Off Checks a. Checklists are to be used on all flights. Checklists are notto be memorized.The normal condition for any aircraft on the ramp is to be fueled, pre-flight inspection complete and the before take-off checklist complete to the point of power for start sequence. b. When a checklist is called for using a placard checklist, the left seat Observer will read the checklist items and the right seat Pilot will check the item and make the appropriate verbal response.These responses do require knowing the proper position for the item on the checklist. /f there is any question as to the appropriate response the full aircraft checklist must be consulted. During a time when the Observer is occupied with other communications it is acceptable for the Pilot in Command to read and respond to checklist items aloud and report the checklist complete. C. Pre-take off engine performance checks, must be completed prior to each flight. A final check of the helicopter prior to take off will be made by both the Pilot in Command and the Observer, after the rotor system is at operating speed.This will include examination of both sides of the aircraft for leaks, loose panels, smoking, unusual vibrations and normal temperatures and pressures. If any item is found to 16 CONTRA COSTA REGIONAL LAw ENFORCEMENT HELICOPTER UNIT AIR OPERATIONS MANUAL be anomalous,the take-off will be aborted and the cause of the malfunction corrected. 6.4 Radio Communication Procedures Professional radio communications is extremely important to flight onerations. a. All clearances must he acknowledged,with call sign, and read back with ground, tower and approach controllers. Never leave a frequency without checking with the controller even though you feel you are clear of his airspace. (This does not apply to leaving Class D airspace). b. While on routine patrol missions,the "discreet law enforcement" radio call designator will be used for communications with traffic control. Local controllers have been briefed, and recognize this call sign as an operational police aircraft. C. Proper coordination of a mission will frequently necessitate monitorinp more than one radio frequency. Radio,and ICS selectors allow this to be accomplished with mixer panel de-select of the less important transmission as necessary. By using the selector/monitors properly,the Pilot in Command and Observer can each keep the Ground Units and Air Traffic Controllers informed of conflicts, changes of direction, expected destinations or expected time required in an area. d. Critical Situations 1. If the flight is going to be in a difficult area or is expected to require special handling, telephone the appropriate controlling facility directly and brief them Drior to take off.This courtesy will gain understanding and possibly extra consideration in the case of conflicts. 2. When a ground situation evolves that becomes life threatening or urgent, andyou anticipate a possible air traffic conflict,you should advise the Controller(prior to the actual conflict) of the potential conflict and state your intentions. You may offer to climb or descend as necessary to maintain the specific point or area required. Notify the controller when the situation is no longer ursent. Every effort should be made to keep interference with air traffic flow to a minimum. e. Handling of Air Traffic Controllers 1. The FAA considers it to be very unprofessional to engage in unnecessary conversation over tower or approach control radio frequencies.Therefore, Air Support Policy will be not to initiate such conversation. However, if the controller has the time and elects to ask a question or engage in conversation, it is appropriate to respond. 2. In the interest of safety and as required by FAA Regulations,while on patrol in the area of Class D area or Class C(inner or outer area), advise the .17 CONTRA COSTA REGIONAL LAw ENFORCEMENT HELICOPTER UNIT AIR OPERATIONS MANUAL appropriate controller of your position, and that you will monitor their frequency. 6.5 Crew Concept The Air Support Unit operates aircraft that are considered general aviation light aircraft. Optimum safety and the complexity of air traffic and patrol operations dictate that the Pilot/Observer crew work closely together and assist each other for safe and effective operations.That is the basis of a crew flying a mission. Both Pilot/Observer have different roles that at time may overlap.Therefore, standard operating procedures and techniques allow each to know what to expect or anticipate in a.particular situation thereby facilitating safe and coordinated operations. a. The Pilot in Command responsibilities for helicopter patrol operations include, but are not limited to: 1. Expeditious clearance and transit to the operation area. 2. Constant scanning and avoiding air traffic. 3. Effective radio communication with Air Traffic Control. 4. Maintaining surveillance altitude, air speed and coordinated (trimmed and fuel balanced)flight. 5. Continually monitor aircraft engine and systems performance. 6. Monitor the Police Radio Communications and coordinate locations with Air Traffic Control. 7. Assist the Observer with locations and streets as conditions permit. b. The Observer's responsibilities include, but are not limited to: 1. Constant visual contact with the ground, in order to detect any situation which may require police intervention. 2. Monitor the police radio for any calls where the helicopter may provide service. 3. Direct the Pilot to calls for service, and once there identify and maintain visual contact with the specified location and/or suspect(s). 4. Relay suspect movements and information on activity which will assist the ground units in a successful apprehension. 5. Inform the PIC of any major movement or plan changes. 6. Coordinate communications or relay radio transmissions for Units unable to receive. 7. Read checklists and report them complete. 8. Scan for Air Traffic during departure and arrival. 9. Monitor engine performance on take-off by calling pressures and RPM, plus monitoring fuel and oil systems for any early indication of power problems. f t 18 CONTRA COSTA REGIONAL LAw ENFORCEMENT HEUCOPfER UNTr AIR OPERATIONS MANUAL Chapter Seven 7.0 Mutual Aid 7.1 Assistance to County Fire Departments Limited air support, in the form of an aerial platform,will be provided to the Fire Department during major emergencies. Response to a Fire Department event may be made via fire dispatch, or self initiated by the Helicopter air crew. In any event, Police Communications will be advised that the helicopter will be operating on the Fire Department's radio channels.The on-duty Watch Commander will also be advised that the helicopter is working a fire event, and an appropriate entry will be made in the daily flight log. 7.2 Response to Assist Outside Agencies The Helicopter Unit will be available for use by outside agencies to respond to high priority emergency situations. Department aircraft will not respond to any location outside the primary response area to assist another agency without prior consent of the on-duty Watch Commander, If a flight crew becomes aware of a situation that calls for aircraft assistance and they are capable of assisting in a timely manner, the flight crew shall request permission to respond from the Watch Commander. It shall be the Observers responsibility to keep the Watch Commander informed regarding the nature of the assistance and the estimated time required to complete the assistance and return to service within the City. The Watch Commander shall always have the authority to recall the aircraft at any time. a. Outside Request Guidelines The primary purpose of a Contra Costa Regional helicopter is patrol support, and response to incidents which occur within the primary response area. Allowing a helicopter to leave the area for extended times and/or distances would not be consistent with intended use. When such outside use is allowed, all known facts and circumstances should be,considered before allowing aircraft to leave. Events in which the Police helicopter may respond to are cases where a life threatening or life endangering situation exists, or those circumstances where assistance of a helicopter may prevent the imminent escape of a felony suspect. Examples would include searching for lost children, robbery or burglary in progress, immediate pursuit of a felony suspect, and vehicle pursuits. b. Cost Recovery Any response by a Contra Costa Regional helicopter will be on a cost recovery basis, based on the actual amount of air time spent assisting the outside agency. The hourly rate is based on direct operating costs(excluding salaries)and will be $300 per hour. The method utilized for cost recovery will be based upon current and relevant Federal aviation regulations. 19 CONTRA COSTA REGIONAL LAw ENFORCEMENT HELICOPTER UNIT AIR OPERATIONS MANUAL 7.3 Passenger Ride Along Program (Based upon current and relevant Federal aviation regulations) a. Swom Officers/Non-Swom City Employees Swom officers,and deputies will be encouraged to ride with the helicopter crew on any flight where space and weight limitations permit City employees may also ride in the Department's helicopter while performing an official City function related to their official duties. b. Private Citizens Private citizens will not normally be allowed to ride in the Department's helicopter. However, exceptions to the policy may be made on an individual basis based on the person making the request and reason for the request. Private citizens allowed to ride in the Department's helicopter may be government representatives, community leaders, members of the news media or any other person where approval has been granted by the ASU supervisor or higher authority. 7.4 Transportation For Reasons Other Than Law Enforcement Purposes Any person desiring transportation in the Department's helicopter for any purpose other than a law enforcement or fire support operation must make the request through the governing board. It is the intent to have the helicopter available for law enforcement/fire use as much as possible.Assigning the helicopter for other duties would not"be beneficial to the Department or citizens. Once a transportation request has been received at the governing board,the request will be reviewed and approved or denied as appropriate, based upon current and relevant Federal aviation regulations. Any ASU member receiving a non-law enforcement/fire transportation request will refer the requestor to the governing board chain of command. MN6355.PD5 20