A Groundbreaking Vision for the Future of Policing

Consolidation of Seven Municipal Police Departments on California’s Monterey Peninsula Can Elevate Recruitment, Resources, and Savings

A pioneering dissertation by Dr. Donna White was recently published, advocating for consolidating seven municipal police departments on California’s Monterey Peninsula into a single unified police service. This research highlights compelling data showcasing the potential for improved public safety, emergency response, enhanced recruitment and retention of officers and professional staff, and the establishment of a robust career department, drawing comparisons to operating data from other cities such as Costa Mesa, West Covina, and Flagstaff (AZ).

The dissertation, conducted as an exploratory case study, analyzed the current law enforcement landscape on the Monterey Peninsula, encompassing the cities of Carmel-by-the-Sea, Del Rey Oaks, Marina, Monterey, Pacific Grove, Sand City, and Seaside. The municipalities cover a geographic area of approximately 31 square miles. According to data from the California Department of Finance, as of January 1, 2021, the combined population of the seven Monterey Peninsula municipalities was just over 141,000. The combined budgets of the police departments for the 2020/2021 budget years were approximately $61,846,815. The total number of sworn peace officers for all agencies was 178, including seven police chiefs and 11 command staff positions. The combined 2020 salary reported for these 18 executive positions was $3,921,000 (California Department of Finance, 2021).

Elevated Emergency Response Resources

Through consolidation, the newly formed unified police service will benefit from elevated emergency response capabilities, enabling a comprehensive and coordinated approach to emergencies. By pooling resources and expertise, the department will be better equipped to respond to major disasters and critical incidents that may affect the entire peninsula. Shared services on the peninsula have successfully reduced crime and increased public safety. Examples include the Peninsula Regional Violence and Narcotics Team (PRVNT), Special Response Unit (SRU), and Strategic Traffic Observation and Prevention Program (STOPP), which underscore the potential for enhanced response capabilities through consolidation.

Recruitment and Retention

Recruiting and retaining law enforcement officers and professional staff is a pressing challenge for many law enforcement agencies nationwide. The difficulties in recruiting and maintaining public safety employees are partly attributed to the 2020 pandemic and the protests of police, which led to significant shifts in public perception and increased scrutiny of the profession. However, the dissertation’s research indicates that consolidation can address these issues effectively. By creating a career department with an expanded scope of services, the unified police service on the Monterey Peninsula will offer a more attractive work environment for officers seeking varied assignments and promotional opportunities. Additionally, financial benefits resulting from cost savings due to reduced command staff and streamlined services will allow for competitive salary adjustments, helping to attract and retain top talent.

CalPERS Savings with Consolidation

One of the significant advantages of consolidation is the potential for substantial cost savings in pension expenses. The 2019 annual CalPERS Funding Levels and Risks Reviews highlighted the concerns over local government employers’ ability to meet annual pension costs. The cost of public safety retirement plans in California has become a massive burden for many cities, with a statewide estimate of over $60 billion in unfunded liability. By consolidating the seven municipal departments, the unified police service can benefit from economies of scale, potentially reducing pension costs while ensuring the long-term retention of personnel.

Comparative Operating Data

The operating data from other cities, such as Costa Mesa, West Covina, and Flagstaff, provide valuable insights into the potential benefits of consolidation.

For instance, the entire city of Costa Mesa, with a population size of 112,405 people and an annual budget of $47,257,266, operates with 191 full-time employees in their police department. Similarly, West Covina, with a population of 105,593 people and an annual budget of $29,279,400, employs 155 full-time employees in its police department. In contrast, Flagstaff, AZ, with a population of 76,831 people and an annual budget of $19,498,534, operates with 169 full-time employees in its police department. Despite their smaller populations, these cities have managed to maintain progressive police services. Still, consolidation could optimize resource allocation and foster a career-oriented department, like the proposal for the Monterey Peninsula.

Success Stories of Consolidation

The success of consolidation can be observed through the experiences of other cities that have taken similar measures. For instance:

Central Marin Police Authority in California

Consolidating law enforcement agencies in various regions, particularly California, has demonstrated significant successes and efficiencies in police operations. One noteworthy example is the formation of the Central Marin Police Authority (CMPA) in California. This consolidation emerged from merging the Twin Cities Police Authority and the San Anselmo Police Department in 2013. It represented a strategic response to the need to maintain high-quality police services while contending with resource limitations. The CMPA, covering the communities of Larkspur, Corte Madera, and San Anselmo in Marin County, successfully integrated the police services of these areas, resulting in a unified and more resource-efficient department. The consolidation led to tangible benefits such as increased patrol forces, enhanced detective units, and a combined traffic unit, which qualified for substantial state grants.

Additionally, it achieved cost savings by reducing overtime expenses and avoiding redundant equipment purchases. This was reflected in their operating budget, which showed a leaner workforce with improved capabilities, serving a combined population of approximately 35,000 residents. The CMPA operates under a Joint Powers Authority (JPA), ensuring that each member city or town is represented on the CMPA Police Council, with the overall management vested in a committee of city and town managers and operational authority assigned to the chief of police. This governance structure has proven effective in maintaining high law enforcement standards while ensuring the communities’ needs are met efficiently.

Del Rey Oaks Police Department in California

Another significant consolidation in California was the 2018 merger of the Monterey Airport Police with the Del Rey Oaks Police Department. This merger resulted from a comprehensive plan developed over seven months, focusing on budget, deployment, and personnel operations. The consolidation effectively ceased operations of the Monterey Airport Police Department, with the newly formed Del Rey Oaks Police Department taking over the service provision to the city and the airport district. This move was based on a police-services contract model, aiming to streamline regional law enforcement operations. The consolidation addressed various challenges, including labor and personnel issues, leading to a more cohesive and efficient policing model. Such consolidations in California demonstrate the potential benefits of merging law enforcement agencies, including improved resource utilization, enhanced service quality, and cost efficiencies. These examples highlight the successful implementation of consolidation models in the law enforcement sector, showcasing a trend towards more unified and efficient police services.

Las Vegas Metropolitan Police Department

The Las Vegas Metropolitan Police Department (LVMPD) was formed by consolidating the Clark County Sheriff’s Department with the Las Vegas municipal police department on July 1, 1973. By merging these agencies, LVMPD became responsible for providing law enforcement services to Las Vegas, Nevada, a city with over 1 million residents and covering approximately 53 square miles. The consolidation resulted in increased police services while eliminating the duplication of law enforcement efforts, promoting efficiency, and enhancing the overall effectiveness in a large metropolitan area.

Charlotte-Mecklenburg Police Department

The city of Charlotte and Mecklenburg County, North Carolina, also achieved remarkable success through law enforcement consolidation. The consolidation was initiated based on citizen demand for a more unified and efficient police service. Combining resources and eliminating overlapping responsibilities, the Charlotte-Mecklenburg Police Department (CMPD) reduced the crime rate and improved overall community safety. The collaboration between city and county governments resulted in a more coordinated and practical approach to law enforcement, ultimately benefiting both jurisdictions.

Data-Driven Solutions

The call for consolidation is supported by extensive data showing the potential benefits for the region. Redundant services, including command staff, records personnel, and professional positions, will be streamlined, resulting in significant cost savings. According to a 2020 report from the California Controller’s Officer, the combined 2020 salary for 18 executive positions across the seven police departments on the Monterey Peninsula totaled $3,921,000. By eliminating excessive command staff positions, the unified police service can achieve considerable financial savings, allowing for an expanded scope of services and competitive salary adjustments.

Work Involved in Successful Consolidation

The proposed consolidation of seven municipal police departments is a complex undertaking that requires meticulous planning and collaboration.

To ensure a seamless and effective transition, the following outline of work is essential:

1. 1. Draft a Joint Powers Agreement setting forth the obligations of both jurisdictions.
   2. Develop a funding formula to allocate resources efficiently.
   3. Create a uniform set of Personnel Rules and Regulations, including employee group recognition procedures for the single Police Department.
   4. Evaluate existing retirement systems and take necessary steps to create a unified police department system under the Public Employee Retirement System (PERS).
   5. Evaluate existing salary and benefit systems to establish a consistent and competitive structure.
   6. Develop procedures for the “meet and confer” process under existing state and local laws.
   7. Decide in the JPA which authority will manage the police budgeting, payroll, warrants, etc.
   8. Incrementally, design and distribute new patches of uniform badges and modify car insignias to represent the unified police service.
   9. Review compensation and general liability questions and determine how future losses and claims will be handled.
   10. Develop uniform general orders while considering unique local concerns.
   11. Establish a hiring procedure, including that of future chiefs of police, and determine recruitment strategy and dismissal procedures.
   12. Address termination procedures and arbitration clauses to resolve future disputes.
   13. Prepare for future expansion of police services due to population and commercial growth increases.

By following this comprehensive outline, the consolidation process can proceed efficiently, minimizing disruptions and ensuring a seamless transition for the communities involved.

A Promising Future

Consolidating municipal police departments into a single unified police service on California’s Monterey Peninsula represents a visionary approach to law enforcement. Backed by data-driven solutions and examples from successful consolidations in other cities, the proposed unification promises to enhance public safety, elevate emergency response capabilities, and foster a thriving career department.

The dissertation’s author, Dr. Donna Marie White, a distinguished scholar and researcher with expertise in law enforcement management and public safety, emphasizes that this consolidation is a bold step towards a more efficient, effective, and sustainable approach to policing in the region.