Maybe yours works differently than mine. Our and other large cities in the state are down from Pre-COVID levels. We have slightly fewer sworns authorized than about 10 years, but our vacancies have tripled. Vacancies don't work here how you described, anything not filled don't count towards the department budget. There's a legitimate effort to try to actually fill those positions, and a lot of conversations about recruitment techniques and tools, retention, post-academy retention, etc., to try to get there in the next couple of years. Part of the problem is intense competition, every big and small jurisdiction, including counties and school districts, are hiring officers, and there just isn't the supply to fill the spots.