Determining the Feasibility of
Merging the Village of Shorewood
Police Department and the
Village of Whitefish Bay Police
Department
By
David M. Banaszynski
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)
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)
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
Description of the Organizations






Shorewood
Founded in 1900
4th oldest suburb
1.3 square miles
Population July of
2005 was 13,192
No industry






Whitefish Bay
Founded in 1892
2nd 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)
Description of the
Organizational Units
Shorewood Whitefish Bay
Chief of Police 1
1
Lieutenant
3
2
Sergeant
3
4
Det. – Sgt.
1
0
Detective
1
2
Patrol Officer 16
15
Total 25
24
(Personal communication, 2007)
Description of the
Organizational Units - Buildings
Shorewood
Built in 1929
With Fire Dept.
5400 square ft.
(Zimmerman Design Group, 2007)
Whitefish Bay
Built early 1960’s
With Village Hall
5800 square ft.
(Personal communication, 2007)
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)
History of Police Consolidation
2007
1980
1973
2003
1980
1898
(Sunnyside Chamber, 2007, para.1; Stockton, 2006 )
Consolidation in Wisconsin
1949 - Sauk Prairie
Police Department:
Sauk City and
Prairie du Sac

1993 - Everest Metro
Police Department:
Weston and
Schofield Police
Departments


1969 - City’s of
Abbotsford and Colby
joined forces
1995 - Fox Valley
Metro Police Dept:
Villages of Kimberly
and Little Chute

(Sauk Prairie Police, n.d.; Peterson, 2004 )
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)
Restraining Forces to
Consolidation

“The political and social pressures
linked to the desire for local selfgovernment offer the most
significant barrier to the
coordination and consolidation of
police departments”
(President’s Commission, 1967)
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
Results and Analysis (Findings)
The
Findings
Results and Analysis
Staff Levels Wisconsin Departments
City
Population
Total
officers
Officers
per 1000
Stevens Point
24,403
44
1.80
Sun Prairie
24,585
44
1.79
Neenah
24,678
38
1.54
Mount Pleasant
25,514
35
1.37
Superior
Average
27,080
25,252
58
44
2.14
1.73
(OJA, 2005)
Results and Analysis
Staff Levels Midwest
Average
Population
Average
Total officers
Officers per 1000
Ratio
Indiana
28,348
50
1.75
Iowa
26,873
40
1.51
Michigan
27,008
36
1.32
Minnesota
27,074
35
1.28
Ohio
26,598
44
1.66
Wisconsin
25,252
44
1.73
Midwest Average
26,816
43
1.59
Shorewood
13192
25
1.90
Whitefish Bay
13508
24
1.78
Combined Population
26700
49
1.84
State
(Crime in the United States, 2005)
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
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)
Results and Analysis
Service Levels – Calls for Service
Department
Calls
Average
Total Crime
For Service Calls/Officer





Metro PD
Neenah
Superior
Sun Prairie
Mt Pleasant
14,378
293
14,000
368
26,300
453
28,000
636
42,137 1,204
(Personal interviews, 2007)
572
439
1,629
621
752
(Crime in the United States, 2005)
Results and Analysis - Duplication
Whitefish Bay 2007 budget
Administration
2005
2006
2007
% change 05-07
Telephone
$
23,706
$
23,706
$
25,275
6.62%
Postage
$
1,000
$
1,000
$
1,000
0.00%
Utilities
$
22,836
$
29,086
$
30,540
33.74%
Shorewood 2007 budget
Administration
2005
2006
2007
% change 05-07
Telephone
$
11,000
$
11,000
$
10,500
-4.55%
Postage
$
5,500
$
6,000
$
6,950
26.36%
Utilities
$
23,116
$
23,837
$
25,073
8.47%
(Village of Shorewood and Village of Whitefish Bay Budgets 2005 – 2007)
Wisconsin Population Between 22,000 and 29,500
State
WISCONSIN
City
Population
Total
officers
Officers per
1000
Fitchburg
21,929
39
1.78
Muskego
22,711
36
1.59
Watertown
22,937
38
1.66
De Pere
22,988
32
1.39
Mequon
23,910
36
1.51
Caledonia
24,339
28
1.15
Stevens Point
24,403
44
1.80
Sun Prairie
24,585
44
1.79
Neenah
24,678
38
1.54
Mount Pleasant
25,514
35
1.37
Superior
27,080
58
2.14
West Bend
29,447
56
1.90
24543
40
1.64
Average
(OJA, 2005)
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)
Results and Analysis
Suggested Staffing Models
Position
Sun
Prairie
Stevens
West
Maximus Model
Point Lafayette
A
Model
B
Model
C
Chief
1
1
1
1
1
1
1
Deputy Chief
1
0
1
0
1
0
1
Captain
0
2
2
2
0
2
2
Lieutenant
4
3
4
2
3
3
3
Sergeant
4
7
4
6
6
6
3
Det/Sergeant
1
1
0
1
1
1
1
Detective
4
4
4
3
2
2
2
Police Officer
29
27
29
31
30
29
31
Total Sworn
44
45
45
46
44
44
44
(Personal communication, 2007; Maximus, 2005)
Results and Analysis
Staffing Change
Shorewood
Whitefish
Bay
Chief of Police
1
1
Model
A
1
Deputy Chief
0
0
1
1
Lieutenant
3
2
3
-2
Patrol Sergeant
3
4
6
-1
Det/Sergeant
1
0
1
0
Detective
1
2
2
-1
Patrol Officer
16
15
30
-1
Total
25
24
44
-5
Position
Position
Change
-1
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
Results and Analysis
Metro Police Wage and Benefit Cost
Researcher Model A
Position
Salary
Number in
Position
Total
Salary
Benefits
@45%
Total
Cost
Chief
$90,000
1
$90,000
$40,500
$130,500
Deputy Chief
$84,023
1
$84,023
$37,810
$121,833
Lieutenant
$74,895
3
$224,685
$101,108
$325,793
Sergeant
$66,873
6
$401,238
$180,557
$581,795
Det/Sergeant
$66,873
1
$66,873
$30,093
$96,966
Detective
$64,319
2
$128,638
$57,887
$186,525
Police Officer $59,435
30
$1,783,050
$802,373
$2,585,423
44
$2,778,507
$1,250,328
$4,028,835
Total
Whitefish Bay’s July 2007 salary rates for all officers at Lieutenant rank or below at top pay.
(Whitefish Bay Budget, 2007)
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
Half of new salary/benefits
Whitefish Bay Savings
$2,219,371
$2,014,418
$ 204,953
Total Shorewood Budgeted in 2007
Half of new salary/benefits
Shorewood Savings
$2,355,054
$2,014,418
$ 340,636
2007 Wages and Fringe Benefits Only
(Village of Shorewood and Village of Whitefish Bay Budgets 2007)
Trustee Survey Results
Rank your concerns about consolidation with one (1) representing your
greatest concern or fear.
answer options
Three Four Five Six
Rating
Average
Response
Count
One
Two
Loss of local control
3
3
2
1
1
0
2.4
10
Loss of local identity
2
3
2
0
2
1
3
10
Start-up cost
2
2
2
1
1
2
3.3
10
Longer response times
2
1
2
1
3
1
3.5
10
Loss of services
1
1
0
5
2
1
3.9
10
On-going cost
0
0
2
2
1
5
4.9
10
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.”
Trustee Survey Results
I would like our Village to look at the following:
Yes
No
Response
Count
A complete merger of the two departments. This merger would allow
for a single operating unit within both communities.
4
6
10
Identify certain functions or functional units within the departments
that could be combined such as investigative services, records,
training and equipment.
9
1
10
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.
7
3
10
Do nothing and continue to work as the two departments are working
now.
1
9
10
answer options
answered question
10
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.
Conclusion

It is feasible to merge the
Shorewood and the Whitefish Bay
Police Departments.
• Actively pursue consolidation
• Use the IACP retreat model
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
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
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
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
Conclusion

Restraining forces must be addressed
• Appoint a Operations Committee
• Major restraining forces to consider:
• loss of local control
• loss of local identity
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
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.
Questions or Comments?