1. Determining the Feasibility of Merging the Village of Shorewood Police Department and the Village of Whitefish Bay Police Department By David M. Banaszynski

2. Overview of the Research Project – Business Problem “The combined harsh realities of escalating government expenses, stagnant local tax revenues, and a dwindling population base can no longer be viewed just as a short term imbalances but rather as structural problems requiring fundamental changes in the way we approach local governance.” (The Onondaga Citizens League, 2006, p.3)

3. Overview of the Research Project In 2005, The Maximus Group was hired to examine consolidation between Villages of Shorewood, Whitefish Bay, Fox Point and Bayside Findings: Combined Shorewood – Whitefish Bay Police Department would save: Shorewood $563,410 Whitefish Bay $23,300 (Maximus, 2005, p.46)

4. Possible Outcomes Available Do nothing and continue to work as the two departments Continue to do business as separate departments but build a joint police station Identify certain functions or functional units within the departments that could be combined Complete merger of the two departments

5. Shorewood Founded in 1900 4 th oldest suburb 1.3 square miles Population July of 2005 was 13,192 No industry Description of the Organizations Whitefish Bay Founded in 1892 2 nd oldest suburb 2.1 square miles Population July of 2005 was 13,508 No industry Consolidated Fire Service and Health Department (Shorewood History Home, 2004, para1) (Whitefish Bay Wisconsin, 2006, p2, para4)

6. Description of the Organizational Units Shorewood Whitefish Bay Chief of Police11 Lieutenant32 Sergeant34 Det. – Sgt.10 Detective12 Patrol Officer 16 15 Total 25 24 (Personal communication, 2007)

7. Description of the Organizational Units - Buildings Shorewood Whitefish Bay Built in 1929 With Fire Dept. 5400 square ft. Built early 1960’s With Village Hall 5800 square ft. (Zimmerman Design Group, 2007) (Personal communication, 2007)

8. History of Police Departments Unlike England, American police systems followed the style of local and municipal governments (Uchida, 2004) 12,656 local law enforcement agencies 451,737 sworn police officers (Bureau of Justice Statistics, 2003)

9. History of Police Consolidation 1973 1980 1898 1980 2003 2007 (Sunnyside Chamber, 2007, para.1; Stockton, 2006 )

10. Consolidation in Wisconsin 1949 - Sauk Prairie Police Department: Sauk City and Prairie du Sac 1969 - City’s of Abbotsford and Colby joined forces 1993 - Everest Metro Police Department: Weston and Schofield Police Departments 1995 - Fox Valley Metro Police Dept: Villages of Kimberly and Little Chute (Sauk Prairie Police, n.d.; Peterson, 2004 )

11. Driving Forces for Consolidation Economies of Scale Duplication of Efforts or Services Effectiveness Efficiency Accountability Harmony Unified Command Structure (Wisconsin Chiefs, 2004; Peterson, 2004, p.1 )

12. Restraining Forces to Consolidation “The political and social pressures linked to the desire for local self- government offer the most significant barrier to the coordination and consolidation of police departments” (President’s Commission, 1967)

13. Method of Research From the research question, four investigative questions were developed. Economic feasibility Maintaining or increasing the current service levels Reduction of duplicated police operations, services and equipment Department structure and staffing levels of a combined department

14. Results and Analysis (Findings) The Findings

15. Results and Analysis Staff Levels Wisconsin Departments CityPopulation Total officers Officers per 1000 Stevens Point24,403441.80 Sun Prairie24,585441.79 Neenah24,678381.54 Mount Pleasant25,514351.37 Superior27,080582.14 Average25,252441.73 (OJA, 2005)

16. Results and Analysis Staff Levels Midwest State Average Population Average Total officers Officers per 1000 Ratio Indiana28,348501.75 Iowa26,873401.51 Michigan27,008361.32 Minnesota27,074351.28 Ohio26,598441.66 Wisconsin25,252441.73 Midwest Average26,816431.59 Shorewood13192251.90 Whitefish Bay13508241.78 Combined Population26700491.84 (Crime in the United States, 2005)

17. Results and Analysis Staffing Requirements to Ratio Metro Police Department at 26,700 Population Midwest Ratio (1.59) = 43 officers Wisconsin Ratio (1.73) = 46 Officers Average Midwest and Wisconsin (1.66) = 44 Officers

18. Results and Analysis Economically Feasible Metro Police Department Budget Wages, overtime and fringe benefits at 49 sworn officers = $4,719,892 Average of $96,324 per officer Midwest Ratio = 43 officers (-6) $577,944 Wisconsin Ratio = 46 officers(-3) $207,972 Average of Midwest & Wisconsin = 44 officers (-5) $481,620 (Village of Shorewood and Village of Whitefish Bay Budget – 2007)

19. Results and Analysis Service Levels – Calls for Service Department Calls Average Total Crime For Service Calls/Officer Metro PD 14,378 293 572 Neenah 14,000 368 439 Superior 26,300 453 1,629 Sun Prairie 28,000 636 621 Mt Pleasant 42,137 1,204 752 (Personal interviews, 2007) (Crime in the United States, 2005)

20. Results and Analysis - Duplication Whitefish Bay 2007 budget Administration 200520062007% change 05-07 Telephone $ 23,706 $ 25,2756.62% Postage $ 1,000 0.00% Utilities $ 22,836 $ 29,086 $ 30,54033.74% Shorewood 2007 budget Administration 200520062007% change 05-07 Telephone $ 11,000 $ 10,500-4.55% Postage $ 5,500 $ 6,000 $ 6,95026.36% Utilities $ 23,116 $ 23,837 $ 25,0738.47% (Village of Shorewood and Village of Whitefish Bay Budgets 2005 – 2007)

21. Wisconsin Population Between 22,000 and 29,500 StateCityPopulation Total officers Officers per 1000 WISCONSIN Fitchburg21,92939 1.78 Muskego22,71136 1.59 Watertown22,93738 1.66 De Pere22,98832 1.39 Mequon23,91036 1.51 Caledonia24,33928 1.15 Stevens Point24,40344 1.80 Sun Prairie24,58544 1.79 Neenah24,67838 1.54 Mount Pleasant25,51435 1.37 Superior27,08058 2.14 West Bend29,44756 1.90 Average2454340 1.64 (OJA, 2005)

22. Results and Analysis Staffing Metro Police Department Use the 1.64 officer ratio per 1000 Metro Police Department would have 44 officers Same ratio as the average of the Midwest and Wisconsin combined Reduction would be one less officer per shift based on the staff minimums (OJA, 2005)

23. Results and Analysis Suggested Staffing Models PositionSun Prairie Stevens Point West Lafayette MaximusModel A Model B Model C Chief1111111 Deputy Chief1010101 Captain0222022 Lieutenant4342333 Sergeant4746663 Det/Sergeant11 01111 Detective4443222 Police Officer29272931302931 Total Sworn4445 4644 (Personal communication, 2007; Maximus, 2005)

24. Results and Analysis Staffing Change PositionShorewood Whitefish Bay Model A Position Change Chief of Police11 1 Deputy Chief00 1 1 Lieutenant32 3 -2 Patrol Sergeant34 6 Det/Sergeant10 1 0 Detective12 2 Patrol Officer1615 30 Total2524 44 -5

25. Results and Analysis Shift Staffing Shift minimums Late Shift and Day Shift of 5 Patrol Officers and 1 Supervisor Early Shift minimums of 6 Patrol Officers and 1 Supervisor Need 27 Patrol Officers 2 School Liaison Officers 1 Full-time Crime Prevention/Community Officer/Court Officer

26. Results and Analysis Metro Police Wage and Benefit Cost Researcher Model A PositionSalaryNumber in Position Total Salary Benefits @45% Total Cost Chief$90,0001 $40,500$130,500 Deputy Chief$84,0231 $37,810$121,833 Lieutenant$74,8953$224,685$101,108$325,793 Sergeant$66,8736$401,238$180,557$581,795 Det/Sergeant$66,8731 $30,093$96,966 Detective$64,3192$128,638$57,887$186,525 Police Officer$59,43530$1,783,050$802,373$2,585,423 Total 44$2,778,507$1,250,328$4,028,835 Whitefish Bay’s July 2007 salary rates for all officers at Lieutenant rank or below at top pay. (Whitefish Bay Budget, 2007)

27. Results and Analysis Potential Savings Shorewood/Whitefish Bay Combined Total (Wages/Fringe):$4,574,425 Minus new combined sworn officers (Wages & Fringe)$4,028,835 Savings$ 545,590 If Split evenly, savings of$ 272,795 Total Whitefish Bay Budgeted in 2007$2,219,371 Half of new salary/benefits$2,014,418 Whitefish Bay Savings$ 204,953 Total Shorewood Budgeted in 2007$2,355,054 Half of new salary/benefits$2,014,418 Shorewood Savings$ 340,636 2007 Wages and Fringe Benefits Only (Village of Shorewood and Village of Whitefish Bay Budgets 2007)

28. Trustee Survey Results Rank your concerns about consolidation with one (1) representing your greatest concern or fear. answer optionsOneTwoThreeFourFiveSix Rating Average Response Count Loss of local control3321102.410 Loss of local identity232021310 Start-up cost2221123.310 Longer response times2121313.510 Loss of services1105213.910 On-going cost0022154.910

29. Trustee Survey Results How successful were the following consolidations? North Shore Fire Department - 8 of 10 Trustees rated it “Very Successful.” North Shore Dispatch Center - 7 of 10 Trustees rated it “Very Successful.” Shared DPW Equipment - 5 of 10 Trustees rated it “Very Successful.”

30. Trustee Survey Results I would like our Village to look at the following: answer optionsYesNo Response Count A complete merger of the two departments. This merger would allow for a single operating unit within both communities. 4610 Identify certain functions or functional units within the departments that could be combined such as investigative services, records, training and equipment. 9110 Continue to do business as separate departments but build a joint police station for the purpose of eliminating redundancy of equipment, outdated buildings and giving each department the space needed for a modern police department to function properly. 7310 Do nothing and continue to work as the two departments are working now. 1910 answered question10

31. Trustee Survey Results Would you be interested in forming a joint committee to further study this issue? 100% of the Trustees that responded wanted to further study this issue.

32. Conclusion It is feasible to merge the Shorewood and the Whitefish Bay Police Departments. Actively pursue consolidation Use the IACP retreat model

33. Conclusion It is economically feasible to consolidate Appoint a Management Committee Develop a cost allocation plan Develop a revenue allocation plan Look at cost allocations used Health Services, North Shore Dispatch Services North Shore Fire Services. Use allocation formula to determine final savings

34. Conclusion There is duplication of equipment. Joint Equipment Committee Study of similar equipment used Possible future equipment and capital needs Limit future purchase of equipment

35. Conclusion Service levels remain the same and or improve. Examine core services Determine the level of service Staff to match these expectations Recommend Model for staffing Full-time Police School Liaison Officer Full-time Crime Prevention officer 24 hour clerical staff

36. Conclusion There are cost savings from a joint building Appoint a Facilities Committee Assist in a space needs study Determine a location Assist in scheduling the construction Dispose of duplicate equipment

37. Conclusion Restraining forces must be addressed Appoint a Operations Committee Major restraining forces to consider: loss of local control loss of local identity

38. Conclusion Operations Committee to: Officers to design: Department patch Squad design Visit: Sauk Prairie Police Department Everest Metro Police Department Fox Valley Metro Police Department

39. Final Conclusion The function of this research was to determine the feasibility of a consolidated police department between the Village of Shorewood and the Village of Whitefish Bay. It is feasible and this merger would be in the best interest of both communities.

40. Questions or Comments?