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K9 Units in Public Transportation: A Guide for Decision Makers (2002)

Chapter: Section 4 - Developing the Proposal

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Suggested Citation:"Section 4 - Developing the Proposal." National Academies of Sciences, Engineering, and Medicine. 2002. K9 Units in Public Transportation: A Guide for Decision Makers. Washington, DC: The National Academies Press. doi: 10.17226/24721.
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Suggested Citation:"Section 4 - Developing the Proposal." National Academies of Sciences, Engineering, and Medicine. 2002. K9 Units in Public Transportation: A Guide for Decision Makers. Washington, DC: The National Academies Press. doi: 10.17226/24721.
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Suggested Citation:"Section 4 - Developing the Proposal." National Academies of Sciences, Engineering, and Medicine. 2002. K9 Units in Public Transportation: A Guide for Decision Makers. Washington, DC: The National Academies Press. doi: 10.17226/24721.
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Suggested Citation:"Section 4 - Developing the Proposal." National Academies of Sciences, Engineering, and Medicine. 2002. K9 Units in Public Transportation: A Guide for Decision Makers. Washington, DC: The National Academies Press. doi: 10.17226/24721.
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Suggested Citation:"Section 4 - Developing the Proposal." National Academies of Sciences, Engineering, and Medicine. 2002. K9 Units in Public Transportation: A Guide for Decision Makers. Washington, DC: The National Academies Press. doi: 10.17226/24721.
×
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Suggested Citation:"Section 4 - Developing the Proposal." National Academies of Sciences, Engineering, and Medicine. 2002. K9 Units in Public Transportation: A Guide for Decision Makers. Washington, DC: The National Academies Press. doi: 10.17226/24721.
×
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Suggested Citation:"Section 4 - Developing the Proposal." National Academies of Sciences, Engineering, and Medicine. 2002. K9 Units in Public Transportation: A Guide for Decision Makers. Washington, DC: The National Academies Press. doi: 10.17226/24721.
×
Page 41
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Suggested Citation:"Section 4 - Developing the Proposal." National Academies of Sciences, Engineering, and Medicine. 2002. K9 Units in Public Transportation: A Guide for Decision Makers. Washington, DC: The National Academies Press. doi: 10.17226/24721.
×
Page 42
Page 43
Suggested Citation:"Section 4 - Developing the Proposal." National Academies of Sciences, Engineering, and Medicine. 2002. K9 Units in Public Transportation: A Guide for Decision Makers. Washington, DC: The National Academies Press. doi: 10.17226/24721.
×
Page 43
Page 44
Suggested Citation:"Section 4 - Developing the Proposal." National Academies of Sciences, Engineering, and Medicine. 2002. K9 Units in Public Transportation: A Guide for Decision Makers. Washington, DC: The National Academies Press. doi: 10.17226/24721.
×
Page 44
Page 45
Suggested Citation:"Section 4 - Developing the Proposal." National Academies of Sciences, Engineering, and Medicine. 2002. K9 Units in Public Transportation: A Guide for Decision Makers. Washington, DC: The National Academies Press. doi: 10.17226/24721.
×
Page 45
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Suggested Citation:"Section 4 - Developing the Proposal." National Academies of Sciences, Engineering, and Medicine. 2002. K9 Units in Public Transportation: A Guide for Decision Makers. Washington, DC: The National Academies Press. doi: 10.17226/24721.
×
Page 46

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35 SECTION 4: DEVELOPING THE PROPOSAL This section provides a step-by-step guide for preparing a proposal to explain who, what, where, how, and how much is involved in the recommended K9 program. According to those public transportation systems interviewed for this Guide, the proposal should be honest and accurate in its presentation of research and facts, avoiding the tendency to oversell the benefits of the K9 program or undersell the costs of the start-up and annual operations. It should identify not only the requirements for building the K9 unit or service but also the specific needs of the transportation organization that will be filled by the K9 unit. Almost every transportation system interviewed for this Guide indicated that clear expectations regarding the costs and requirements of the K9 program, as well as what the program would and would not provide the overall security program, were essential to its eventual long-term success. During the research and proposal-writing process, interviewed transportation systems reached out to existing local law enforcement K9 programs and contacted specialists. This expertise provided critical support for: ❐ identifying community resources that could be shared (such as training facilities and procuring vehicles for training services, specialized equipment, and memberships in certifying agencies); ❐ locating training programs and sample in-service training policies and procedures; ❐ developing mutual aid programs for managing response to calls for service; ❐ addressing funding issues and identifying possible grants and local sources of support; and ❐ identifying breeders and vendors who provide quality dogs. Interviewed systems recommended using the research process to create partnerships with as many local organizations as possible, including businesses and rider associations served by the transportation agency, local law enforcement, local bomb and narcotics units, professional dog-handling associations, and the local prosecutor’s office. Reciprocity, mutual aid, and shared support were emphasized by the interviewed agencies as critical resources for the long-term stability and effective operation of the K9 program. Interviewed agencies also encouraged those interested in establishing a K9 program to coordinate their efforts with existing federal agencies. Knowledge related to TSA, Customs, DEA, and DOJ (Department of Justice) plans and programs may provide opportunities for federal funding and training. This support could ease the start-up burden on the transportation system and reduce resistance to the program. Programs supported through federal funds also often require certifications, in-service training programs, and ongoing evaluations for K9 teams that reduce liability concerns.

36 Appendixes D and E of this Guide contain general information regarding the requirements and benefits of TSA and DOJ programs, respectively. Table 11 identifies other activities performed by interviewed systems during the process of initiating their K9 units: TABLE 11: TRANSPORTATION ACTIVITIES FOR K9 PROGRAM START-UP TRANSPORTATION ACTIVITIES PUBLIC TRANSPORTATION SYSTEMS WITH K9 UNITS A M TR A K B A R T C TA H ou st on M ET R O M A R TA M B TA N FT A SE PT A W M A TA Transportation Law Enforcement Jurisdiction X X X X Memorandum of Understanding with Local Law Enforcement X X X X X X X X X DE FI NE AU TH OR IT Y FO R K9 P RO GR AM Special Jurisdictional Provisions X X Mission Statement for K9 Program X X X X X X X X X Preparation of General Orders or Operational Orders X X X X X Documented and Required Performance Standards X X X X X X X X X Use of Force Policy for K9 Unit X X X X X X X X X DE VE LO P DR AF T PR OC ED UR ES Bite Policy for K9 Unit X X X X X X X X X TSA X X DOJ or Other Federal or State Programs X X X X X Local Business or Jaycees X X X X X Community Groups X X X X X X X ID EN TI FY S OU RC ES F OR FU ND S, F AC IL IT IE S, & SU PP OR T Local Prosecutor X X X X DOCUMENTING THE PROPOSAL Interviewed transportation systems indicated that the following information should be documented in proposals to support executive consideration of the K9 program:

37 ❐ brief description of the need for the K9 unit (or service) within the transportation operation and the likely benefits of the K9 program; ❐ recommended jurisdictional authority for the program, including a Memorandum of Understanding (MOU) and mutual aid provisions; ❐ brief summary of liability concerns associated with K9 unit or service and how they will be addressed; ❐ overview of proposed K9 deployment including the process recommended for dog and handler selection, required training, certification requirements, and expected performance standards for the K9 unit or service; and ❐ budget for the proposed K9 unit, including start-up and ongoing maintenance costs, and any initiatives under consideration for offsetting costs. DOCUMENTING NEED AND BENEFITS Transportation personnel wishing to start a K9 unit must research their own system, their community, and surrounding communities to identify the functions to be performed by the K9 unit at the transportation system. For small departments, it is particularly important to recognize that establishing an in- house K9 unit will remove an officer from the patrol force and will change the dynamic of patrol operations. Some members of the transportation system may view the creation of this unit as offering bonuses or perks to the handler. These perks, such as a vehicle, a dog care per diem, overtime, and the opportunity to travel for training and conferences, may be questioned by management and other officers. Transportation systems that have disbanded K9 programs cited this tension as a primary reason management questioned the return on its investment. As indicated in Table 12, research into past calls for service and patrol assignments can provide a wealth of information regarding when a police dog (or vendor-supplied service dog) may have been useful to the transportation system. Tables 13 and 14 address this potential challenge for the K9 program, providing concrete justification for the K9 unit and educating executive leadership on the types of functions performed by K9 teams. The information provided in these tables also clarifies the requirements placed on the handler to support patrol, as well as the extra work the handler would be assuming in managing the K9 and being on call. There are many potential benefits that are offered by the K9 unit for the activities mentioned in Table 14. There may be potential reductions in crime and crime attempts involving the public transportation system as a result of keeping a K9 unit active and visible around transportation facilities. Managers of public transportation systems must consider each specific or anecdotal incident where K9 units may be useful.

38 TABLE 12: NEEDS ASSESSMENT CU RR EN TL Y PE RF OR ME D? SU PP LE ME NT AL SU PP OR T FR OM K 9 UN IT P OS SI BL E? CU RR EN T AS SE SS ME NT O F EF FE CT IV EN ES S/ PE RF OR MA NC E PR IO RI TY P LA CE D ON A CT IV IT Y TO TA L PR IO RI TY RA NK IN G FO R PO SS IB LE K9 U NI T SE RV IC E NEEDS ASSESSMENT FOR K9 UNIT ACTIVITY Answer with Yes or No Rate on a Scale of 1 to 5 (5 is the Highest) 1. High Visibility Deterrent Patrol 2. Crowd Control 3. Public Relations and Demonstrations 4. Youth Programs and Community Policing Initiatives 5. Building Searches for Suspects 6. Open Area Searches for Suspects 7. Officer Assist Calls for High-Risk Arrests 8. Victim Searches 9. Arrests and Assists for Local Law Enforcement 10. Non-lethal Officer Protection 11. Narcotics Search and Seizure 12. Narcotics Forfeiture Programs 13. Explosives Detection, Pre-screening Facilities 14. Explosives Detection, Search to Resolve Threats 15. Explosives Detection, Suspicious Packages

39 TABLE 13: PROPOSED USE OF K9 UNIT Assigned Patrol ❐ High-visibility deterrent patrol o Directed patrol o Random patrol within zone or by time of day ❐ Crowd control o Peak service intervals and special events ❐ Traffic control, parking lots, bus lanes ❐ Public relations demonstrations ❐ Youth programs, community policing initiatives ❐ Narcotics sweeps and searches ❐ Pre-event screening for explosives ❐ Executive protection (during strikes) ❐ Administrative and remote supporting facility patrol (heightened threat levels) Response to Calls for Service or Assists ❐ Building searches for suspects ❐ Open area searches for suspects ❐ Officer calls for high-risk arrests ❐ Traffic accidents ❐ Victim searches ❐ Local law enforcement support through MOUs ❐ Non-lethal officer protection ❐ Narcotics search and seizure (warrants and investigations) ❐ Explosives detection, search to resolve bomb threats ❐ Explosives detection, clearing suspicious packages Number of Calls or Assignments in the Last 12 Months (In Which K9 Units Could Have Been Used) ❐ Requests for additional patrol from businesses and schools ❐ Special events ❐ High visibility sweeps ❐ Facility searches for suspects ❐ Traffic control ❐ Narcotics detection ❐ Warrants ❐ Explosive detection (general) ❐ Station or vehicle search for explosives (in response to a threat) ❐ Public outreach ❐ Youth programs ❐ Executive protection

40 TABLE 14: SUPPORT PROVIDED BY K9 UNIT ACTIVITY ACTIVITY REQUIRED IN THE LAST 12 MONTHS Deterrent Patrol, Property Protection ❐ Officer assignments ❐ Calls for service ❐ Crime rates Deterrent Patrol, Right- of-Way Protection: ❐ Officer assignments ❐ Calls for service ❐ Crime rates ❐ Safety incidents and accidents Deterrent Patrol, Quality of Life Enforcement ❐ Officer assignments ❐ Calls for service ❐ Crime rates ❐ Passenger surveys or complaints Tracking ❐ Calls for service ❐ Mutual aid requests for canine ❐ Crime rates Facility Searches ❐ Calls for service ❐ Mutual aid requests for canine services ❐ Crime rates Assisting in Officer Arrests ❐ Arrest reports ❐ Warrants issued ❐ Officer injury reports Explosives Detection ❐ Bomb threats ❐ Facility or vehicle evacuation ❐ Mutual aid requests for canine services ❐ Calls for local bomb squad Narcotics Detection ❐ Officer assignments ❐ Calls for service ❐ Crime rates ❐ Narcotics-related arrests ❐ Mutual aid requests for a narcotics detection canine ❐ Employee complaints or requests ❐ Passenger surveys or complaints DOCUMENTING JURISDICTIONAL AUTHORITY In this section of the proposal, the transportation system should address those complex issues involving the jurisdictional authority of the K9 program. Many of these issues can be resolved through a Memorandum of Understanding with local law enforcement. Figure 4 presents key questions for consideration.

41 MAJOR JURISDICTIONAL ISSUES TO CONSIDER ❐ What are the legal boundaries surrounding K9 deployment by the transportation system? ❐ If pursuit of a suspect begins on system property, but ends up in another law enforcement agency’s jurisdiction, what is the responsibility of the K9 team? ❐ What is the authority of the K9 team to support local calls for assistance and service? ❐ If the transportation K9 unit supports local calls for assistance, how will the local law enforcement agencies reciprocate in kind? Will the system provide additional support during special events or access to training facilities and equipment? ❐ If the transportation system will be providing in-service training for narcotics and explosives detection dogs, what protocols will be followed to ensure compliance with local, state, and federal laws regarding the use of regulated substances in training? ❐ If this training will be provided at another facility (local law enforcement or contractor), what legal requirements will be placed on the transportation system and handlers for compliance with appropriate regulations? ❐ Will the K9 unit support the issuing of warrants by the transportation police department? By local law enforcement? ❐ Will the K9 unit participate in narcotics investigations conducted by local, state, and federal law enforcement agencies? If so, will the transportation system be compensated through receipt of grants from forfeiture programs? ❐ Will joint patrols and operations be conducted with local law enforcement? If so, how will these be established? FIGURE 4: JURISDICTIONAL CONSIDERATIONS DOCUMENTING LIABILITY Liability is a main concern for the potential handler, the department administration, the transportation system, and the system’s legal counsel. As part of the proposal, this issue must be addressed in great detail. Interviewed systems recommend that the proposal should consider the issues highlighted in Table 15. DOCUMENTING PROPOSED K9 TEAM DEPLOYMENT The proposal should identify the functions to be performed by the K9 unit, the source of the K9s and the desired breed (if possible), the policy for selecting the handler, and the basic requirements for deployment. Table 16 provides an example of how this information can be documented.

42 TABLE 15: LIABILITY CONSIDERATIONS ISSUES TO BE ADDRESSED REGARDING LIABILITY AND INSURANCE General Requirements ❐ Mandatory state minimum standards and certifications ❐ Local municipality or county standards for K9 training and certification ❐ Insurance discount available for liability insurance if the K9 team is a member of a national organization and has passed all of the applicable certification tests ❐ System policy on handler homeowner's insurance for K9 ❐ System policy on vehicle insurance for K9 ❐ Medical or replacement insurance for K9 Current Legal Standards for K9 Teams ❐ Tracking ❐ Officer Protection or Use of Force ❐ Narcotics Detection or Search and Seizures ❐ Warrants ❐ Explosives Detection ❐ Arrests ❐ Record Keeping ❐ Testifying in Court Current Legal Standards for K9 Team Qualifications ❐ Trainer or Vendor Qualifications and Accreditations ❐ Dog Selection Policy ❐ Dog Breeder Qualifications ❐ Handler Selection Policy ❐ General Orders for K9 Unit ❐ Reports and Assignments ❐ Basic Training ❐ In-service Training ❐ Performance Evaluation ❐ Certification ❐ Use of Contractors ❐ Record Keeping

43 TABLE 16: SAMPLE OVERVIEW OF PROPOSED K9 UNIT NUMBER OF K9 TEAMS RECOMMENDED Four teams are recommended to initiate the K9 unit FUNCTIONS TO BE PERFORMED Team 1: Explosives Detection Team 2: Dual Purpose: Patrol and Narcotics Detection Team 3: Dual Purpose: Patrol and Narcotics Detection Team 4: Dual Purpose: Patrol and Apprehension SOURCE OF K9S Team 1: TSA Program Team 2: ABC Vendor (DEA certified) Team 3: ABC Vendor (DEA certified) Team 4: XYZ Vendor (recommended by law enforcement) K9 SELECTION PROCESS ❐ The TSA will provide the K9 for Team 1 through the MWD program at Lackland Air Force Base. ❐ A vendor-certified program will be used to select the K9s for Teams 2 and 3. This program includes evaluation of the K9 for certain desirable traits, drives, and temperament. If accepted, the K9 must then pass a very thorough medical exam. ❐ The K9 selected for Team 4 will also go through a vendor-certified program. In addition, the Master Trainer at MNO Law Enforcement Agency has agreed to conduct an independent evaluation. HANDLER SELECTION PROCESS Handlers will be chosen from the patrol division. Minimum requirements include: ❐ No less than 3 years in the patrol division ❐ Administrative review in the following areas: 1. Evaluations 2. Disciplinary Action 3. Commendations 4. Use of Force Incidents 5. Use of Firearms Incidents 6. Auto Accidents 7. Training Schools Attended 8. Work History (Sick Use, Punctuality, and Work Habits) ❐ Review of written proposal, submitted by the officer, supporting that he/she should be a K9 handler ❐ Formal interview with candidate and candidate’s family at his or her home ❐ Vendor evaluation of candidate-dog interaction and handling potential ❐ Final decision made by the Chief of Police on which officer will be selected for the position BASIC TRAINING FOR EACH TEAM ❐ Basic training requires 320 to 400 hours ❐ Team 1 will be certified to TSA standards

44 TABLE 16: SAMPLE OVERVIEW OF PROPOSED K9 UNIT ❐ Teams 2,3, and 4 will be certified to the North American Police Working Dog Association’s or another certifying association’s standards IN-SERVICE TRAINING POLICY FOR EACH TEAM ❐ In-service training requires10 hours per week ❐ Basic obedience training at transportation facility ❐ TSA explosives training provided at Airport Police Facility ❐ Narcotics training provided at MNO Law Enforcement Facility ❐ Apprehension training provided at MNO Law Enforcement Facility ❐ Vendor, Airport, and MNO Law Enforcement will oversee handler progress OTHER TRAINING & CONFERENCES FOR EACH TEAM 40 hours per year INTERNAL EVALUATION Every 6 months EXTERNAL EVALUATION Every year to TSA or another certifying association’s standards (as is appropriate for the team) DEMONSTRATIONS OR COMPETITIONS Each team may perform up to 10 public relations demonstrations annually and complete in two competitions each year VEHICLES Modified police cars or 4X4s with kennel cages and controls (aluminum inserts to protect the canine and the interior of the vehicle, heat alarms to monitor the vehicle’s inside temperature, and remote door poppers for rapid deployment of patrol canines). KEVLAR VESTS K9s assisting on high-risk missions (narcotics searches, riot control, and bomb threats) will have bullet and stab protection via a Kevlar vest weighing approximately 2 pounds. SCHEDULE K9 team members will typically work patrol operations during peak activity hours, usually from about 7:00 am to 6:00 pm. Special calls and assignments are arranged to assist SWAT operations (narcotics searches); provide contractual or MOU services for narcotics or explosives detection at local schools, airports, or other facilities; and provide narcotic or explosive ordinance detection assistance calls for other local, state, and federal agencies. Demonstrations and public relations activities will also be encouraged. EMERGENCY CALL 7 days a week 24 hours a day

45 DOCUMENTING COST The proposal should provide a detailed budget for the K9 unit. Expenses should be as complete as possible. Public transportation system decisions are driven by costs and budgets. Once the budget proposal is submitted, it is very hard to go back and add to costs or explain the increases. Issues to consider include the following: ❐ Cost of Dog. Can the dog be provided by a federal program or funded in part through a grant, or must all costs be borne by the transportation system? ❐ Housing of Dog. Interviewed systems recommend that the K9 live with the handler. Costs of a home kennel should be included in the proposal. ❐ Training of Dog and Handler. Basic training may require the handler to live in another location for up to 4 months. This cost must be included. ❐ Training Equipment. Aggression sleeves, leashes, tracking harness, collars, muzzles, and other equipment must be considered in the initial start-up costs. Special storage facilities for explosives and narcotics may also be included. ❐ Canine Care and Grooming. Cost of food, grooming, and veterinary bills must be considered. ❐ Patrol Vehicle. It will be necessary for the K9 unit to be mobile. Interviewed systems recommended that each K9 team be assigned a patrol vehicle, and this vehicle be kept at the handler's home. ❐ K9 Package for Vehicle. To protect the K9, the vehicle must be equipped with a metal cage and securing system. Temperature warning systems and automatic door controls are also available. ❐ Maintenance of Vehicle. Costs such as fuel and repairs must be included. ❐ In-service Training. These costs may include access to the trainer and training facilities, as well as training equipment for the dog. In the case of narcotics and explosives materials, special permits and requirements apply. ❐ Certification. Annual or biennial certifications should be addressed. ❐ Conferences and External Training. Travel and conferences should also be included. These items can be cut if management objects, but interviewed systems report that these events offer a high rate of return on investment. ❐ Handler Compensation. Many agencies offer per diems to supplement handler housing and care of the dog when not at work. Overtime policies should also be considered in the estimate, especially if the K9 team will be on call around-the- clock for emergencies.

46 Table 17 displays a sample budget proposal that could be created by a transportation system police department interested in a K9 unit. TABLE 17: SAMPLE BUDGET PROPOSAL FOR K9 UNIT PROGRAM REQUIREMENTS DESCRIPTION UNIT COST NUMBER REQUIRED COST LABOR Police Officer K9 handlers $60,000 2 $120,000 Daily Care Handler compensation $3,000 2 $6,000 Overtime Additional hours put in by team $5,000 2 $10,000 OTHER INITIAL PROGRAM EXPENSES Canine Pre-trained for dual purpose use (patrol and explosives or narcotics detection) $6,000 2 $12,000 Basic Training Package 3-month basic training program (incl. lodging & travel) $9,000 2 $18,000 Basic Equipment Package Lead, collar, training equipment, kennel slab, bullet-resistant vest $3,000 2 $6,000 Certifications Certification registration & trial $450 2 $900 General Care Food, veterinary, & grooming $1,800 2 $3,600 Records Software Reporting & training software $400 1 $400 Vehicle & Equipment Vehicle with kennel cage, temperature monitoring, and remote door control package $25,000 2 $50,000 In-service Training Facility and trainer fees $2,000 2 $4,000 TOTAL START-UP EXPENSES $230,900 ONGOING LABOR Police Officer K9 handlers $60,000 2 $120,000 Daily Care Handler compensation $3,000 2 $6,000 Overtime Additional hours put in by team $5,000 2 $10,000 ONGOING PROGRAM MAINTENANCE EXPENSES In-service Training Facility and trainer fees $3,000 2 $6,000 General Care Food, veterinary, & grooming $1,800 3 $3,600 Certifications Certification registration & trial $450 2 $900 Vehicle and Equipment Maintenance, fuel, equipment replacement $3,000 2 $6,000 Travel and Conferences Competitions, conferences (40 hours per year) $3,000 2 $6,000 ANNUAL ONGOING PROGRAM EXPENSES $158,500 Prepared by: __________________________________________________________________________

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TRB's Transit Cooperative Research Program (TCRP) Report 86: Public Transportation Security, Volume 2: K9 Units in Public Transportation: A Guide for Decision Makers offers information on current K9 deployment practices, K9 program establishment issues, and explosives detection.

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