Speaking as a lead developer of a leading FR system, in the majority of cases, the FR user is a private organization with large public traffic: department stores, malls, schools, universities, stadiums, and yes: municipalities (cities). The majority of the purpose clients use FR: 1) commercial users such as stores and malls have serious problems with organized theft; 2) schools, universities, stadiums and municipalities use them for public safety, the people in their galleries are people who have made actual threats and active fugitives; The use of FR by police is very infrequent, as they simply (sad to say) don't seem to have access to technical competence to actually use the systems. And then there is the glaring fact that when deployed, the majority of FR systems they go unused simply because understanding how to use the FR system requires more time than anyone there has. Some "integrator" installs with a weak understanding of their purpose, and then it collects dust.