Date: 201604
Local time of day: 1201-1800
Location: DCA.Airport, DC
Flight conditions: VMC
Weather elements / visibility: Haze / Smoke; Rain; 4
Light: Daylight
Aircraft: Helicopter
Operator: Government
Operating under: Part 91
Flight plan: VFR
Mission: Passenger
Flight phase: Cruise
Airspace: Class E PCT; Special Use DCSFRA
ATC / advisory: TRACON PCT; Tower DCA
Reporter organization: Government
Reporter function: Captain; Pilot Flying
Reporter qualification: Flight Crew Instrument; Flight Crew Air Transport Pilot (ATP)
Human factors: Communication Breakdown; Situational Awareness
Second reporter function: First Officer; Pilot Not Flying
Anomaly: ATC Issue All Types; Airspace Violation All Types; Deviation / Discrepancy - Procedural Clearance; Deviation / Discrepancy - Procedural Published Material / Policy
Detector: Person Flight Crew
When detected: In-flight
Result: Air Traffic Control Provided Assistance; Flight Crew Overcame Equipment Problem; Flight Crew Requested ATC Assistance / Clarification
Contributing factors: ATC Equipment / Nav Facility / Buildings; Aircraft; Procedure
Primary problem: ATC Equipment / Nav Facility / Buildings

Narrative: Upon departure and obtaining cruise flight at 1500 feet MSL/150 Knots; radio communication was attempted with TRACON prior to entry into the SFRA via the Special Flight Rules Area (SFRA) frequency with negative results. I had experienced this occurrence on numerous occasions in this portion of airspace unless able to operate at a higher altitude (1800 feet-2000 feet MSL) or closer to the Flight Restricted Zone (FRZ). This had also been a discussion topic at two Helicopter Organization conferences with TRACON representation. They stated there was a known radio communication deficiency with aircraft operating at lower altitudes in that area. Their guidance was to proceed into the SFRA and continue with radio calls 'in-the-blind'; while squawking the appropriate company transponder code until two-way contact was established. Coordination would also ensure the assigned mission aircraft route of flight and destination would be verified.Since the current weather conditions (approximately 2100 foot ceiling and 4-5 miles in scattered rain showers) prevented a higher altitude; the decision was made to proceed into the SFRA and attempt further radio contact. Two more calls were made on the SFRA frequency with no response received from ATC. Five miles into the SFRA and still unable to contact ATC; I had the SIC switch to Tower frequency.  As the SIC was establishing contact with tower; a law enforcement helicopter relayed a TRACON request for our aircraft to contact them on [frequency]. I responded we had already switched to tower and would proceed on that frequency. Immediate two-way communication was established with a positive radar contact call and tower clearance to enter the airspace via our requested route of flight. The flight continued; and return to the home base.Upon our return; we received a message to contact a FAA representative to discuss aspects of our flight. The conversation covered what was occurring and the actions taken by our aircrew. The FAA representative detailed how TRACON could see ours and another aircraft's (10 minutes in trail) appropriate transponder codes; we were NORDO. The FAA representative stated with both aircraft within close proximity to each other they were thinking they were being tested and initiated their protocols. The FAA Representative stated he called and was able to verify both aircraft; their route of flight and destination. He also stated further protocols were suspended. I discussed with him the actions and thought process taken by our aircrew as previously outlined. He relayed a couple of frequencies provided by TRACON that would be more useful in that area of the SFRA. He thanked me for the feedback and I stated I would pass this information on to our Command aircrew.What could prevent this from occurring in the future?All of our functions require a multifaceted effort when operating with clear and effective communication between all parties vital in successful mission accomplishment. With the associated Special Use Airspace and its unique operating procedures; everyone must be diligent in this effort. From the individual Command aircraft to ATC; every level must be clear in their intent and effectively communicate this to all other concerned entities. Improved communication relays/towers in this area would be helpful in filling in gaps further assisting lower altitude aircraft. Establish an improved communication path between the helicopters and TRACON to pass frequency changes that enhance known problem areas.


Second narrative: Prior to entering the SFRA; aircraft with company code in the transponder contacted TRACON. TRACON directed the crew to contact them on [frequency]. The crew did not receive a response on [frequency]; which is common when flying in this area at lower altitudes. While continuing into the SFRA; switched back to a different frequency. Traffic on this frequency was heavy. After a few minutes; the crew was able to gain contact with the controller and heard 'radar contact' from the controller. Communication with ATC progressed normally after that to include switching to Tower.


Synopsis: Helicopter crew was unable to establish communication with the PCT TRACON for permission to enter the DC SFRA. The aircraft proceeded to its destination anyway.