GPD tells Guam Legislature staffing shortfalls jeopardize performance-based budgeting goals

Colonel Joseph S. Carbolito, appearing for Chief Stephen C. Ignacio, told the Legislature on Feb. 10 that the Guam Police Department lacks enough sworn and civilian staff to sustain routine operations and to implement the department's performance-based budget for FY2027. "These are actual numbers that we really need, senator," Carbolito said when asked whether the positions listed in the departmentsubmission were essential.

The department provided multiple vacancy counts that senators pressed to reconcile: GPD said the Operations Bureau shows roughly 107 vacancies under one accounting, while senators referenced as many as 201 total vacancies across bureaus. Senator Turlahi summarized the department's ask as approximately $8.8 million to fund 201 vacancies, a figure GPD used to illustrate the funding gap between the department's request and the executive proposal.

GPD officials outlined recruitment and retention steps already taken: pay adjustments of 18% (2022) and 25.59% (June 2024), continuous police trainee announcements, automatic promotion pathways, and a proposed triennial retention bonus. Senator Chris Barnett described the retention bonus as a $10,000 award to officers who accrue three consecutive satisfactory performance ratings; GPD confirmed the bonus line had been included in its FY27 request and that $2,500,000 is allocated for retention measures in their submission.

Administrative Services Officer Neli Sanoma said GPD built decision packages on FY2025 baselines and section-level needs, adding FTE requests to the staffing pattern; she said bureaus submit decision packages that GPD compiles for BBMR review. "We are basing ourselves on FY'25 as well as looking into every section in the department and pointing out the positions that are needed," Sanoma said.

Senators repeatedly questioned how eligible lapses and unexpended FY25 appropriations affect GPD's ability to hire. The committee cited a consolidated report indicating roughly $9.35 million in FY25 unexpended appropriations; GPD staff said those balances were present at 09/30/2025 but that subsequent executive-branch reappropriation actions removed most of the funds from the department's planning visibility. GPD said only a $500,000 appropriation tied to the Fallen Officers Memorial remained a straightforward carryover candidate.

GPD also warned that the existing manpower shortfall drives overtime and operational strain. In response to questions, GPD staff reported overtime expenditures rose sharply in recent fiscal years (the department cited overtime figures in its testimony), and said any personnel increases would reduce overtime pressure but that recruits require months of on-the-job development before they materially relieve overtime burdens.

What happens next: the committee asked GPD to provide reconciled lapse and carryover figures, a detailed list of prior-year obligations, and fuller documentation supporting the department's vacancy and dollar estimates. Senators noted the FY27 executive submission does not match GPD's full request and signaled further negotiations between the Legislature and the executive branch would be required.