1. Statement of Problem:

(1)

The Saint Paul Police Department (SPPD) is a municipal agency responsible for the law

enforcement duties in the capital city of Minnesota. Saint Paul is the second most populous city
in the state (294,873), second only to Minneapolis, which borders Saint. Paul.
The SPPD has expanded our capabilities in the area of digital recordings over the past 10
years with the implementation of in car cameras (ICC) in our squad cars and closed circuit
television cameras (CCTV) on some of our main thoroughfares and the downtown area. We
have also developed partnerships with our private sector in the marriage of privately operated
CCTV systems incorporated into our public safety strategies.
The SPPD recognizes that the use of the most current technologies not only improves the
quality and efficiency of the service we provide to our community, but can also provide an
excellent opportunity to enhance and improve the trust and support of everyone living, working,
and visiting our city. The SPPD believes that as the capital city of Minnesota we have an
opportunity and responsibility to be a leader in this emerging technology and to be ambassadors
for positive police and community relations.
(2)

St. Paul is one of the two cities that comprise the area known as the “Twin Cities”. The

area has this name because Saint Paul and Minneapolis are located next to one another, with the
Mississippi river dividing them. The overall “Twin Cities” area is generally considered to be
Minneapolis, Saint Paul and the surrounding municipalities, which include the five surrounding
counties (seven total). This region is considered the 16th largest metropolitan area in the country
and has an overall population of 3.46 million people.
The City of Saint Paul itself includes an area of 56.18 square miles, with approximately
7% of that area consisting of water. It is known as “The Most Livable City in America.”
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According to the United States Census Bureau, Saint Paul’s population is 60% white, 15.7%
African American, 15% Asian, and 9.6% Hispanic/Latino. Within the city, 51.1% are females
and the median household income measured during 2009 – 2013 was $47,000.
Saint Paul has a thriving immigration movement, including a large Somali, Hmong, and
Hispanic population. In the past seven years Saint Paul has also seen an influx of people from
the Karen community, an ethnic group from the mountainous border regions of Burma and
Thailand. With an above average median income, strong employment market and cultural
acceptance and encouraged diversity, Saint Paul continues to expand as a diverse melting pot for
different cultural experiences.
(3)

The SPPD has a full time internal affairs unit, including a civilian oversight process with

a seven person civilian review board. The department reviews all Use of Force (UOF) incidents
on a daily basis and these events are reported to the assistant chief of patrol operations for strict
oversight. Each UOF incident is tracked and documented in an incident report and a separate
UOF data base (Blue Team) in addition to the supervisory oversight occurring at the immediate
supervisory level and the command level review.
With the implementation of BWC’s we recognize an opportunity to identify tactical and
training needs that have the potential to influence how we train and deploy our officers in the
field. We also believe that with our current monitoring and tracking systems in place this can
provide us with a unique ability to compare and contrast pre and post BWC deployment and the
incidents where force is/was needed or used.
The SPPD knows that one of our most important, core strengths is the strong, positive
relationships we have with our community and its members. We believe that the use of BWC’s

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to increase transparency, trust, education, and accountability is crucial to maintaining and
strengthening these relationships. Whether achieved through improved officer behavior,
increased civility during the police – citizen contact, better documentation and evidence in
official duties, or quicker resolutions to law enforcement action(s), all can contribute to a more
robust community-based law enforcement approach. This trust and transparency is what allows
the community to know and believe the police department is theirs, serving and working for and
with them to achieve the best outcomes for all involved.
As seen in Rialto, CA, Mesa, AZ, San Diego, CA, and others, a reduction in complaints
and the UOF can not only lead to improved police service but can allow agencies to better
deploy their resources in positive and proactive ways when there is a reduced necessity to
investigate a higher number of complaints. We recognize that better service and response can
not only lead to greater trust but also to a more efficient agency.
(4)

As mentioned previously, the SPPD has expanded our use of digital multimedia evidence

(DME) over the past 10 years. Through these advances we have seen firsthand how direct,
unbiased evidence like DME’s can provide and produce not only stronger more certain
adjudication to criminal matters, but that this evidence can also expedite resolutions to these
serious events. Alternatives to trial borne resolutions can reduce the burden on the legal system,
and more importantly help insure the principles of the presumption of innocence remain intact
for everyone involved with the criminal justice system.
An example of our success in leveraging DME is with pursuit (felony fleeing police in a
motor vehicle) cases. Previous to the advent of ICC, our department was often unable to sustain
charges for this offense if pursuits were ended or cancelled within one mile of origination.
DME’s introduced specific evidence which supported the observations and reports of officers
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allowing more efficient and effective adjudication of these cases. DME’s also supported safer
resolution by capturing dangerous driving behavior without the necessity of immediate
apprehension to facilitate the charge. As a result officers made better decisions supported by
technology and the belief in the alternate method of charging.
(5)

The SPPD has long-established partnerships with neighboring agencies, other legal

entities, and both formal and informal groups within our community. A specific example of
these partnerships is the on-going initiatives we maintain with both the city and county attorney’s
offices. These agencies, responsible for the charging, prosecution, civil defense, and other legal
matters have supported us in the past and are eager to do so with the BWC initiative (see letters
of support),
As we begin to develop our BWC program we have already been in contact with many of
these groups to include their needs (i.e. evidence access for attorneys) for how DME’s can best
benefit them in their segment of the criminal justice process. We have developed questionnaires
and social media tools to inform the public, encourage participation, and cultivate community
opinions in the use, access, and responsibilities that accompany all digital evidence and the
potential hazards and complications associated with them. We are working with our partners,
like victim advocacy groups, to best address their concerns for individual victims while
maintaining the department’s legal requirements and trust from the outside community. We are
inviting groups such as the National Association for the Advancement of Colored People
(NAACP) and the American Civil Liberties Union (ACLU) to be a part of the discussion at the
beginning of our research process, before major decisions are made, so that their opinions can be
heard, addressed, and considered. The SPPD believes that even the initial stages of a project like

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BWC’s can offer opportunities to gain and build trust amongst community shareholders. We
believe DME’s hold the same potential.
(6)

The SPPD has experience receiving and responding to requests made under the Freedom

of Information Act (FOIA), and more particularly MN State Statutes13.01 – 13.06, 13.82. . We
have a full service records management unit with experience in handling external request on a
daily basis and a two dedicated data practices employees who handle all other requests for digital
media.
The Saint Paul Police Department is working with other city, regional, state, and federal
partners and resources to identify a broad spectrum of considerations to balance privacy and
transparency in the implementation of its body worn camera program.
The department has and will continue to conduct interviews with law enforcement
agencies that are using BWC’s. The department is also undertaking a comprehensive literature
review including papers published by the Department of Justice, the President’s Task Force on
21 Century Policing, International Association of Chiefs of Police, the Police Executive
Research Forum, law review articles, and surveys of legislation from states that have addressed
body worn camera data regulation.
Particularly important to the process are direct stakeholders, including officers who will
be asked to wear the cameras, community leaders, victim advocacy organizations, city officials,
law makers, prosecutors, and the courts. The department will engage and confer with these
stakeholders to develop its policies, practices, and training before BWC’s are deployed in the
field.

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(7)

The SPPD has771 employees that include 615 sworn employees who are licensed as

peace officers in the State of Minnesota. The department is led by a chief of police who oversees
the department’s three divisions; patrol operations, major crimes and support services and
administration. Each of these divisions is under the command of an assistant chief. The chief of
police reports directly to the mayor. The remaining rank structure consists of six senior
commander, 22 commanders, 142 sergeants, and 435 police officer ranked personnel.
The city’s patrol operations functions include the largest staffing contingents and they are
divided amongst three patrol districts, each under the command of a senior commander and two
commanders. The Patrol operations division also includes the city-wide services (CWS) which
includes the department’s canine (K9) Unit, the traffic & accident unit and the public housing
policing unit, known as “A Community Outreach Project”, or A.C.O.P. unit. The City-Wide
Services unit is under the command of one senior commander and one commander.
The patrol districts include 240 police officer rank personnel and 27 patrol sergeant
assignments, with additional officers assigned to the city’s downtown beat (DTB), K9 and
ACOP duties. With the addition of these officers and street supervisors assigned to support
patrol functions, the SPPD is seeking to deploy 400 BWC’s (65% of sworn officers) interacting
with the public on a full or primary responsibility basis. Through our local and national research
we have learned that depending on the structure, size, and configuration of those departments
already using BWC’s successfully, the range falls between 60% – 80% of the sworn contingent,
wearing BWC’s in their daily assignments.
Through a testing period and incremental implementation, we believe we can identify the
products and methods best suited for our agency and community.

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2. Project Design and Implementation:
The first phase of our BWC program involves research, community outreach, and legal
efforts related to Minnesota’s Data Privacy laws. During this phase we have researched products
and characteristics to learn about the market, specifications, and capabilities. A major goal was
to develop an request for information (RFI) to solicit market response and to create documents to
help educate and inform our officers and the public on the options available, and the capabilities
they possess. This process was completed in May of 2015.
We are establishing focus groups to help identify concerns, guide decision making, and
contribute to successful change management from the onset of the program. These groups
internally include the department’s union leaders, officers, supervisors, civilian staff, and senior
management. Externally, they include neighborhood groups, minority groups, prosecutors and
public defenders, city council, and data rights organizations. We want to establish a cooperative
which will allow for conversations, education, and input to the process which we believe will
benefit the program across all levels and during all phases. We are also conducting surveys at
community events and via social media to inform the community about the project and to elicit
information regarding the community’s concerns and attitudes about BWC’s, data privacy, and
the specific use of BWC’s in certain areas.
Data privacy laws and requirements are being reviewed and we will work with other
agencies, legislators, the city attorney, and our policy developers to insure our program,
supporting policies, and our capabilities are compatible with state and federal requirements. This
includes issues related to data collection, storage, retention, and the release of the data.

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We are conducting roll call visits, union notifications, and other departmental
communications to keep our employees informed of the process and help facilitate positive
change management. Internal communication, information access, and rumor management will
be a staple throughout the development of our program.
In the next phase of the project we will develop a request for proposal (RFP) related to
the cameras which possess the product characteristics we identify as important from our
research, officers, legal team, and the community. This information will be used to test products
meeting those requirements and to maximize the confidence by the users, recipients, and the
public, in the equipment being deployed in the field. A testing policy will be developed for this
period to guide the use of the BWC’s and related functions and it will be a working document.
We will begin the training process for the initial users and supervisors of the BWC
program with the ultimate goal of training the entire department in the use, policy, and
procedures of the BWC program. We will develop and conduct training specific to police
interactions which are recorded to educate and benefit all sworn personnel regardless of their
assignment or use of BWC’s.
We will identify the BWC cameras, storage, and redaction products to be purchased and
identify the areas and manner they will be initially deployed. Using the testing period as the first
phase of incremental deployment, we will build on those lessons as we expand our program.
We will continue meeting with our focus groups to educate them on our progress and to
learn from them regarding concerns, successes, and best practices useful to both us and future
agencies hoping to start a BWC program. As the testing process and incremental deployment
progresses, communication with the officers in the field using the BWC’s will be crucial to
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identify concerns, needs, strengths, and recommendations for the program. This information will
be memorialized for internal use, grant reporting, and peer support for other agencies.
We will review videos to identify camera related performance and capabilities to ensure
the equipment functions as designed in the environments they are deployed. This will include
the use of BWC in firearms (range), UOF, and academy settings where the cameras can be
reviewed for durability, uniform compatibleness, image review, and training support. In a region
like Minnesota (climate zone 3 & 4), different deployment methods based on the amount of
clothing required will need to be addressed and considered from the beginning of the program.
Video review will also include the identification of training needs and the use of
exemplary footage which can be rolled forward for future training and educational use. Effective
tactical use of cameras will be an ongoing initiative and officers and supervisors will be
encouraged to report examples they deem best illustrate good learning lessons for BWC users
and/or BWC deployment.
This phase will also include the beginning of the use and external requests for DME’s
and public data. As this process expands, we will assess the amount of increased demand this
will place on the technology, records units, and dedicated data practices employees who field
these requests. The program commander, technology commander, and the assistant chief will
meet regularly to track the impact of this new data collection, storage, and responsibility.
Through this process we will begin to identify the staffing needs required to sustain the program
as it grows and when it is complete. This assessment will be on-going.
In the next phase will expand the deployment to include the full number of BWC’s
allotted. This will include an assessment of additional staff or assignments which may be
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identified in the testing and incremental stages, as additional personnel who should be wearing
BWC’s. This may result in an expansion beyond the 400 cameras (65%) and the costs related to
those additional cameras would be borne by the applicant.
Training will continue with the inclusion of lessons learned via the testing phases and a
department wide in-service training will be developed and added to the training docket to
educate personnel on new laws, policies, procedures, and best practices, annually.
During all phases the internal affairs unit (IA) will complete a monthly assessment of
complaints involving officers utilizing BWC’s and the results of those incidents. As the testing
process expands a review and comparison of incidents involving officers wearing BWC’s will be
reviewed against similar, previous time periods and officers not wearing BWC’s. The
department’s UOF reviews will continue to take place but will now include the benefit of BWC
footage, where available. As always, personnel will be encouraged to identify footage with
potential training value. The BWC coordinator and IA command will meet regularly to insure
the review process expands commensurate with the phases of the program and its growth.
During all phases we will continue to work with our partner groups to identify the needs
and requirements related to Minnesota’s Data Privacy laws. We will work with our peer groups
to address legislative remedies if/when needed to develop (or contribute to) laws that best
support the needs of the public while maintaining the sanctity of the rights of individual victims,
witnesses, suspects, and officers.
3. Capabilities and Competencies:
a)

The SPPD is currently in the research and development phase of our BWC program.

Using the “Implementing a Body-Worn Camera Program, Recommendations and Lessons
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Learned” report as a guideline, coupled with our own expanded research we are hoping to
develop the best possible strategies to be successful in this new endeavor.
The support services and administration division, under the direct supervision of an
assistant chief, is responsible for developing the department’s plan for the deployment of
BWC’s. The department has assigned one commander and one sergeant to this assignment, fulltime, with the inclusion of internal and external focus groups to best identify how to apply the
lessons learned from the “Implementation” plan and our department and community.
Commander Axel Henry has been a police officer for 20 years and has held the rank of
Commander for the past 4 ½ years. Commander Henry is a recent graduate of the 259th Session
of the FBI National Academy. Commander Henry is a UOF and Firearms (FA) Instructor,
teaches report writing, UOF documentation, and his previous assignment was as the patrol
commander for the departments central patrol district, which included extensive work with
community groups and community outreach. As a sergeant, Commander Henry also developed
the training for the entire patrol operations division in the “Blueprint for Safety,” a
groundbreaking domestic violence initiative lead by the SPPD with our partners in the criminal
justice, victim, and advocacy communities. Commander Henry’s other previous assignments
include the watch commander’s office (WCO) and the family and sexual violence unit (FSVU)
within the major crimes division. Commander Henry’s career has a strong background in
operations and patrol tactics.
Sergeant Jeff Stiff has been a police officer for 20 years and he has held the rank of
Sergeant for three years. Sergeant Stiff is a former member of the department’s special weapons
and tactics (SWAT) team and is an emergency vehicle operations course (EVOC) instructor.
Sergeant Stiff is a current ordinance disposal unit (ODU – “Bomb Squad”) member and a UOF
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and FA instructor. Sergeant Stiff’s previous assignment was as a patrol supervisor which
included supervising 30 patrol officers in the district where the ICC’s were first deployed.
Sergeant Stiff has experience in dealing with community groups and youth outreach. His
assignments have also included working in street level narcotics investigations and his resume
includes an extensive background in operations and patrol tactics.
b)

The SPPD has experience in drafting, developing and implementing policies and our

department manuals are available in both electronic and physical forms. Our manual is also
available electronically to the public on the City of Saint Paul’s Internet Webstie. We plan to use
our current policies which include DME regulations, to guide our efforts with new BWC
policies, so many of the practices remain consistent for perspective users. This would include
the categorizing of videos, retention schedules for both criminal and civil cases, and access to
recordings to insure the accountability aspect of our program remains intact.
In addition to the basic “user” guidelines, the SPPD will meet with external and internal
groups including the NAACP, ACLU, Saint Paul Police Federation (Union), civilian, and officer
focus groups to discuss ideas, hear concerns, and educate each other as the program progresses.
Our belief is that the process itself can garner useful information, increased understanding, and
general goodwill for the program. With a data collection program of this size there are numerous
legitimate concerns and phobias that surround the issue. We believe a truly open dialogue with
the groups involved can reduce these fears and provide insight to develop the best policy for our
city, officers and citizens.
c)

The SPPD includes a technology Unit under the supervision of a commander, within the

support services and administration division. This unit is comprised of both sworn and civilian

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staff. This group works directly with the agency’s different units to develop, implement, and
maintain the technological systems needed, or being used, throughout the department.
The Saint Paul Police Department has a CCTV project which is supported with grant
assistance. The project uses grant resources and city funds to facilitate a video surveillance
platform. This platform has transformed into an information sharing hub which can monitor
assets from stakeholders such as the U.S. Coast Guard, Saint Paul Parks and Recreation, and
important military and federal government sites around the City of Saint Paul.  
  
The CCTV project has also integrated the department’s ICC technology. The program
connects seamlessly and allows officers to have one centralized repository for data
collection. The data management portion of the system allows a high level of after action
assessment of incidents through the ability to search and retrieve stored digital data. Not only is
this useful for after action assessments but also future threat assessment awareness. It plays a
major role in identifying and assessing additional advanced training and equipment needs. Both
systems have the capacity and capability for integration with BWC’s.
The Saint Paul Police Department has completed several implementations projects in the
past five years. Most recently, a new computer aided dispatch model was launched which
included test groups and incremental deployment strategies. Additionally, an advanced
authentication method was added to our mobile laptops and sensitive data access points to ensure
our processes and the information they access, have the necessary safeguards in place. We have
also implemented several software initiatives; including e-learning which we are confident will
continue to expand over time.

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d)

The Saint Paul Police Department has served as the fiscal agent and lead for multiple

community programs including state and federal grants. The department has received grants
totaling over 30,000,000 dollars in the last ten years. Currently we are the lead agency in a state
grant to reduce disproportionate minority contact and reduce juvenile crime. The work of the
grant is being done by a cross-sector consortium of six community non-profit agencies and
others who meet on a bi-weekly basis to problem solve issues, examine data, and change
methods when needed. We also serve as fiscal agent for this grant and have made sub grant
awards to two community organizations. This collaborative grant runs through the fall of this
year with the goals of reducing disproportional minority contact with youth and police and a
reduction in Part I crime. Through the first quarter of this year, we have referred 128 youth to
our service provider partners.
In 2007 the Minnesota Legislature awarded a grant to the of Saint Paul Police
Department to write a comprehensive plan integrating the knowledge gleaned from thirty years
of local and national research, demonstration projects, and practice into a “blueprint” for city and
county agencies responding to misdemeanor and felony assaults. The Blueprint was created with
the leadership of the Saint Paul Police Department at the forefront with seven agencies and the
district court bench in the City of Saint Paul. The process included conversations and
consultation with community members, advocates, researchers, and experts confronting this
crime both locally and nationally. The Blueprint for Safety is written as a single document with
a chapter for each agency within the criminal justice system. It is not a collection of good
policies; it is a collective policy with each chapter linked inextricably to the whole. In 2012 the
department was awarded “The Bright Idea” award by the Innovations in Government Program,
Harvard Kennedy School, Ash Center for Democratic Governance and Innovation. New

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Orleans, Louisiana, Shelby County, Tennessee, Duluth, Minnesota, and Mankato, Minnesota
have also adopted the Blueprint for Safety.
In late 2009, the SPPD was awarded a United States Department of Justice grant titled
African Immigrant Muslim Outreach Program (AIMCOP) based on the thesis of now retired
Assistant Chief Dennis Jensen who had attended the Naval Post Graduate School and earned a
Master of Arts degree in Security Studies specific to Homeland Security and the Defense of the
United States. The goals of the grant program included; Improve public safety and community
livability by increasing involvement of African immigrant Muslim residents working in
partnership with criminal justice agencies, Improve public safety by increasing the understanding
and cooperation between criminal justice agencies and the African immigrant Muslim
community, Identify and reduce radicalization of Muslim youth. The Saint Paul YWCA and the
Saint Paul Police PAL (Police Activities League) were instrumental in the youth skills
enhancement and prevention of criminal activity including the radicalization of these youth. The
program included a partnership with our local women’s advocate program to aid in the education
of the Somali community regarding domestic violence and also ensure that woman who needed
services received them in a culturally acceptable environment. Throughout the program, the
SPPD was committed to the East African/Somali refugee community including providing
comprehensive language translation services which created a solid foundation from which to
build a more comprehensive community-policing program.
e)

As previously mentioned, the Saint Paul Police Department has developed a CCTV

system which is currently in use in various parts of the city. The CCTV program exemplifies
what a department can do when partnered with grant support and strong inter-agency
relationships. These partnerships include the U.S. Coast Guard, F.B.I., other divisions within the

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city and the United States military. Most marked squad cars are equipped with ICC which
integrates into the same system as the CCTV initiative.
The SPPD is working toward unified communications and data mining efforts. To
achieve these we are monitoring analytics for multimedia contents, and ensuring our desktops
can multi-function with digital cameras, video and voice recording methods. In addition, we are
targeting technologies that have web based capabilities to allow us to have the best available
platform, improved efficiency, reduce costs, and increase access to data by potential users. In
the next two years we intend to migrate to a web based report writing management system which
will further strengthen this process. This migration will also include the expansion of our current
electronic ticket writing system, to include all squad cars within the city. Currently these are
being incrementally deployed within our traffic and accident and parking enforcement units.
f)

The SPPD has formal memorandums of understanding (MOU’s) with various agencies

with whom we interact regularly. As it relates to BWC’s, we have not implemented any formal
agreements because we are still in the early stages of our project. We have already established a
dialogue with both city and county prosecutors and we have included the City Attorney’s Office
in our project development team.
As demonstrated via the attached letters of support, our process has sought to identify and
include all groups who might be impacted by the program, before any BWC’s are deployed.
Through past experience and lessons learned, we recognize the early involvement of
stakeholders and the consideration of their needs will be crucial to the success of the program,
overall.
The department will formalize these relationships with prosecutors, adjoining agencies,
the Ramsey County Sheriff’s Office, Metropolitan Transit Police, advocacy groups, civil rights
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organizations, and community groups, when and where needed or appropriate. The focus groups
established at the onset of the program will aid in identification and necessity of these
agreements.
4. Program Continuity:

The SPPD believes in the potential this emerging technology can provide to assist us in
working with our different communities to develop the highest levels of police service available.
As discussed in the PERF/COPS report, we are confident that with a calculated and informed
approach we can achieve future cost saving through the improvement of police response(s), a
reduction in complaints and UOF related issues, and the strengthening of the prosecution
process, overall.
The SPPD has the support of the mayor, city council, and the private sector, including the
St. Paul Police Foundation, who has offered supplementary support for our agency with these
efforts. This support is not temporary and stems from a shared belief that the technological
advancements, coupled with the trust and accountability factors, make these efforts integral to
the department and the city’s long-term success. As such they should be considered a priority
and accounted for in future budgetary requests and projections.
The SPPD believes that with the support of this grant, including the information collected
and gleaned through the first 24 months, we can identify the best and most cost effective
strategies to meet our department and city needs.
In addition to the commitment from the highest levels of city government and strong
backing from our private sector partners, within the 24-month pilot project we believe we will

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have the opportunity to identify new ways to streamline operational methods and identify ways
to absorb new costs and eliminate antiquated ones.
5. Plan for Collecting the Data required for this Solicitation’s Performance Measures and
Sustainment:

The SPPD has assigned two full-time employees (commander and sergeant) to the
implementation of this project who will oversee the initial phases of the program. The
department has a full time employee assigned to grant management and they will be supported
by the program coordinator and the individual units involved with the program.
The Saint Paul Police Department has a dedicated Training Unit which will oversee the
training and documentation of employees trained in the use, policies and procedures, and
evidentiary issues related to BWC’s and their use.
The SPPD has a full service internal affairs unit (IAU) and training unit who will help the
BWC project coordinator. As a department- wide initiative the entire command staff will be
educated on the program, including the objectives, performance measures, and data required for
grant reporting.
The patrol operations division has a pre-established process in place for daily review of
all UOF issues, which are addressed daily (when necessary) and reviewed weekly by senior
command staff and the assistant chief of operations. We can/will expand on this process to track
BWC events and the corresponding impacts they have (if any) on related data (i.e. IA
complaints, etc.).
The SPPD will use objectives, performance measures, and data sheet created by
reviewing the example provided in the grant to insure each category necessary is accounted for

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and reported in the format requested. If areas are not applicable they will be noted as such and
any variances, such as existing policies (pre-grant), will be noted in the grant reports to
accurately document the work during the grant period(s).

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