City Council - Small Business & Professional Licensure Committee Hearing on Docket #1633

Meeting Date: October 17, 2025, at 10:00 AM Governing Body: Boston City Council - Small Business & Professional Licensure Committee Type of Meeting: Committee Hearing Attendees:

• Councilor Brian Worrell (Chair)
• Councilor Edward Flynn
• Councilor Erin Murphy
• Superintendent Paul McLaughlin (Boston Police Department)
• Ryan Kearney (General Counsel, Retailers Association of Massachusetts)
• Randy Grohe-Lathrop (South End Resident, Former Retailer)
• Michael Nichols (President, Downtown Boston Alliance)
• Brian McCarter (South End Resident)

Absent:

• Councilor Sharon Durkan (Letter of absence)
• Council President Ruthzee Louijeune (Letter of absence)

Executive Summary

The City Council's Small Business & Professional Licensure Committee convened a hearing on Docket #1633 to discuss the escalating issue of retail theft and its impact on small businesses and residents in Boston. The discussion highlighted a significant increase in shoplifting incidents, with data indicating a 27% rise from 2023 to 2024 and a 55% increase from the first half of 2019 to the same period in 2024. Key initiatives like the "Safe Shopping Working Group" and the "Safe Shopper Initiative" were presented as collaborative efforts between the Boston Police Department, the Suffolk County District Attorney's Office, and retailers to combat theft through improved communication, data collection, and targeted enforcement. Concerns were raised about the distinction between "stealing for need" and "stealing for greed," the impact of the $1,200 larceny threshold, and the need for increased police presence and support for small businesses through education, grants, and security measures.

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Agenda Item: Docket #1633 - Discussion on Retail Theft and its Impact on Small Businesses and Residents

Opening Remarks

• Councilor Brian Worrell (Chair):
  • Opened the hearing at 10:06 AM.
  • Stated the hearing is being recorded and live-streamed.
  • Noted the purpose of the hearing is to discuss retail theft and its impact on small businesses and residents.
  • Mentioned the docket was sponsored by Councilor Ed Flynn and referred to the committee on September 10, 2025.
  • Highlighted the need for increased activity from the C-11 Community Interaction Team (CIT) and more foot patrols in business districts, citing frequent targeting of convenience stores in his district.
  • Emphasized improving collaboration and communication efforts.
• Councilor Edward Flynn (Lead Sponsor):
  • Thanked the Chair and acknowledged Superintendent McLaughlin (Boston Police Department) and Ryan Kearney (Retailers Association of Massachusetts).
  • Recognized Randy Lathrop, a community leader in the South End and Back Bay, for her support of businesses.
  • Stated that retail theft impacts small businesses through merchandise loss and raises consumer prices to compensate for lost revenue.
  • Expressed resident concerns about the impact of theft on quality of life.
  • Referenced the "Opiate Crisis" as a factor leading retailers to lock up items like soap, shower products, razor blades, and baby formula.
  • Shared an experience from a Chinatown meeting discussing stolen food being resold at the Chinatown Gate, leading to public safety and health concerns.
  • Cited data from the Council of Criminal Justice:
    • Shoplifting increased by 27% from 2023 to 2024 in Boston.
    • Shoplifting increased by 55% from the first half of 2019 to the same period in 2024.
  • Noted that these figures might be conservative due to varying reporting policies.
  • Mentioned the larceny limit was raised from $250 to $1,200 in 2018.
    • Theft under $1,200 is a misdemeanor (up to one year in jail or a $300 fine).
    • Felony larceny carries up to five years in prison and a significant fine.
  • Highlighted the City of Boston's "Safe Shopping Initiative" as a partnership between Boston Police, the District Attorney's Office, and local businesses to address and prevent shoplifting from becoming violent.
  • Advocated for "zero tolerance for stealing" to protect businesses, residents, consumers, and the city.
• Councilor Erin Murphy:
  • Thanked small businesses for their investment in neighborhoods.
  • Acknowledged the growing problem of retail theft and its impact on businesses and residents.
  • Stated that theft costs lead to higher prices and the locking up of everyday essentials, diminishing the "safe, welcoming feel" of stores.
  • Expressed concern for residents, especially seniors and working families, regarding safety and civility.
  • Recognized that the issue stems from larger crises like addiction, poverty, and mental health, requiring a multi-faceted approach.
  • Emphasized the Council's role in examining policies, partnerships, and unintended consequences to find solutions.

Panel Presentations

• Superintendent Paul McLaughlin (Boston Police Department, Chief of the Bureau of Investigative Services):
  • Stated that retail theft is a community issue affecting safety, confidence, and quality of life.
  • Explained that unchecked theft leads to neighborhood decline, business closures, job losses, and increased insecurity.
  • Introduced the "Safe Shopping Working Group," formed in 2024, as a collaborative effort to address retail theft.
    • Comprises representatives from BPD, Suffolk County District Attorney's Office, national and local retailers, and business groups.
    • Initial intent was to gather perspectives to develop strategies and best practices.
    • Aims to improve the overall shopping experience by addressing safety and financial losses.
  • Identified three priority areas:
    1. Repeat and chronic offenders.
    2. High-value offenders.
    3. Those using violence and intimidation.
  • Stressed that this is "not a plan to arrest our way out of a problem," emphasizing officer discretion for issues like poverty, homelessness, drug addiction, and mental health.
  • Noted the partnership with the Suffolk County DA's office allows for alternative prosecution paths, such as "service over sentences."
  • Addressed the perceived lack of importance placed on shoplifting as a crime, especially in courts.
  • Identified "effective reporting, data collection, and information sharing" as a significant gap.
  • Stated that better data allows prosecutors to justify appropriate sentencing for offenders driving the problem.
  • Reported "significant successes" in the past year and a half due to information sharing, leading to accountability for repeat offenders.
• Ryan Kearney (General Counsel, Retailers Association of Massachusetts):
  • Represented 4,000 businesses in retail, restaurant, and wholesale sectors statewide.
  • Stated members seek a safe environment for business, employees, and consumers.
  • Highlighted a significant increase in theft and violent incidents nationally and locally.
  • Cited National Retail Federation survey data (2019-2023):
    • 93% of asset protection professionals saw an increase in average shoplifting incidents per year.
    • 90% reported an increase in dollar loss per incident.
  • Noted a 29% increase in shoplifting incidents on average in 2024, aligning with BPD's 15% increase in Boston for January 2024.
  • Acknowledged retailer investments in technology, security, and training, but stressed the need for public partnership.
  • Praised the "Boston Safe Shopper Initiative" for:
    1. Opening lines of communication: Raised awareness beyond "entry-level crime" to include organized theft for economic gain (reselling online or black markets).
    2. Aligning priorities: Differentiated between those needing services (juveniles, mental health, addiction) and repeat/high-level offenders, or those using violence/gang activity.
    3. Increased response: Improved confidence in calling for service, direct communication with districts, increased police presence (foot patrols, details), and in-store anti-theft operations.
  • Emphasized improved record-keeping and reporting, including the BRIC (Boston Regional Intelligence Center) database, for tracking offenders and supporting meaningful prosecution.
  • Expressed cautious optimism, viewing the initiative as a "marathon, not a sprint," but highlighted a reliable network, data set, and willingness among parties as positive outcomes.

First Round of Questions - Councilors

• Councilor Edward Flynn:

  • Asked if increased arrests for shoplifting indicate the BPD is taking the issue seriously and if the partnership is effective.
    • Ryan Kearney: Confirmed accuracy, stating the partnership is serious and has a plan.
  • Inquired if significant financial impact occurred even before increased arrests.
    • Ryan Kearney: Confirmed, noting the BRIC database now allows granular tracking. Stated that prior to BPD's prioritization, members were deterred from reporting lower-level incidents due to resource demands.
  • Asked about the dollar number of thefts prior to increased arrests.
    • Ryan Kearney: Stated it was significant, and industry statistics show an increase in value per incident after the felony threshold was raised. Noted that sophisticated offenders often stay below the $1,200 felony threshold, believing they won't face meaningful prosecution.
  • Asked Superintendent McLaughlin about the illegal selling of food around the Chinatown Gate.
    • Superintendent McLaughlin: Confirmed awareness and district-level action. Stated that citywide, overt food resale is less common than resale of high-value stolen items (e.g., apparel, electronics) online or through fencing operations. Noted the BRIC analyst helps identify fencing operations and links to gang funding.
    • Ryan Kearney: Added that the BRIC data would show trends if food theft for resale became widespread, but currently, apparel and electronics are more prevalent.
  • Inquired about dealing with higher-level theft, such as multiple high-value jackets stolen from Newbury Street or Boylston Street.
    • Superintendent McLaughlin: Explained that District 4 deploys significant assets (plainclothes, foot patrols) to high-end areas. Emphasized building relationships with stores for quick information sharing and deterrence. Stated that incidents like the Lululemon theft are assigned to investigators, who use video and data (offender patterns, target items) to inform deployments. Encouraged retailers to establish direct connections with district community service officers or detective commanders.
    • Ryan Kearney: Agreed that high-value clothing theft is more sophisticated, citing "smash and grab" incidents and online resale/return fraud.

• Councilor Erin Murphy:

  • Asked about the distinction between "stealing for need" and "stealing for greed," and if data exists on the proportion of each.
    • Ryan Kearney: Stated the vast majority of losses are from sophisticated actors, not low-level shoplifters. High-level theft involves larger quantities and often leads to more violent confrontations.
  • Inquired about the $1,200 larceny limit and if Massachusetts allows for aggregation of theft values for repeat offenders.
    • Ryan Kearney: Stated Massachusetts does not allow aggregation. Noted that 39 states have increased felony thresholds but include some form of escalator for repeat offenses. Advocated for revisiting this policy.
  • Asked how the law handles group theft (e.g., $2,000 stolen by four people).
    • Ryan Kearney: Deferred to the District Attorney's office for specifics, but mentioned the "organized retail crime statute" for merchandise over $10,000.
  • Asked about other "hot spots" for retail theft beyond Boylston/Newbury Streets.
    • Superintendent McLaughlin: Identified Downtown Crossing, South End, Back Bay, and South Bay Mall as significant areas. Also noted specific locations like Fields Corner (500 Geneva Ave), Target in Roslindale Square, Whole Foods, and Walgreens in Jamaica Plain. Explained that deployment strategies are tailored to district-wide or specific location problems.
  • Asked about advice given to store owners and retail workers regarding confronting thieves.
    • Ryan Kearney: Stated industry best practice is a "hands-off approach" for untrained staff. Advised securing evidence and footage for law enforcement. Cited an incident where an employee was injured for intervening.
    • Superintendent McLaughlin: Concurred, advising employees to be "good witnesses," get descriptions, and call 911 quickly.
  • Asked about the annual cost of retail theft to the City of Boston.
    • Ryan Kearney: Stated no specific number for Boston, but estimated $1.5 to $2 billion in losses for Massachusetts (including cargo theft, internal theft, and shoplifting).
  • Asked if property damage (e.g., broken windows) is included in the loss estimate.
    • Ryan Kearney: Clarified the estimate is for "loss of shrink" (merchandise).

• Councilor Brian Worrell (Chair):

  • Asked if pre-COVID numbers for shoplifting are available for comparison.
    • Ryan Kearney: Stated the 93% increase is from 2019 to 2023 (pre-COVID to post-COVID), and offered to retrieve 2018 numbers.
  • Inquired if the "Safe Shopping Initiative" considers public infrastructure (e.g., lighting) or permitting processes that might impact security needs (e.g., requiring multiple entrances).
    • Ryan Kearney: Stated permitting hasn't been a focus, but members make investments based on individual store needs. Mentioned working with the Downtown Crossing Neighborhood Association on design improvements (e.g., lighting, addressing unhoused individuals in alcoves).
    • Superintendent McLaughlin: Added that officers routinely advise on "target hardening" (e.g., removing window displays for visibility, better security systems, lighting). Noted that larger chains are proactive in internal security measures.
  • Asked about the "services over sentences" initiative and data on repeat offenders referred to it.
    • Superintendent McLaughlin: Stated this is a court-level decision and he doesn't have specific data.
    • Ryan Kearney: Suggested the District Attorney's office would have such statistics. Believed that repeat referrals to "services over sentences" would likely lead to escalation to prosecution.

Second Round of Questions - Councilors

• Councilor Edward Flynn:

  • Praised the role of Community Service Officers (CSOs) and advocated for hiring more police officers (200 annually for 10-15 years).
  • Highlighted the importance of supporting police and acknowledged the increase in theft arrests as a sign of taking the issue seriously.
  • Reiterated concerns about open selling of stolen goods in Chinatown and the need for continued collaboration with community groups.

• Councilor Erin Murphy:

  • Emphasized the need for stronger partnerships between small businesses and the Boston Police, acknowledging that business owners cannot also be detectives.
  • Stressed the importance of continued advocacy for resources, recognizing that all city departments must contribute to supporting small businesses.
  • Asked Ryan Kearney what additional support or policy changes would help businesses.
    • Ryan Kearney: Advocated for more investment in policing and staffing, acknowledging BPD's limited resources. At the state level, called for a decrease in the felony threshold or aggregation for repeat offenders. Emphasized the value of continued support and partnership.
  • Thanked the panelists and Council for the hearing, noting the importance of addressing "stealing for need" versus "stealing for greed" and ensuring the DA has resources for both.
  • Praised the collaborative efforts of all stakeholders and the use of technology (e.g., security cameras) to aid law enforcement.

Second Panel Presentation

• Randy Grohe-Lathrop (South End Resident, Former Retailer):
  • Identified as a 40-year South End resident with 20 years of retail experience (Quincy Market, Newbury Street).
  • Described two types of shoplifters: "smash and grab" and "professional shoplifters" (who steal for a living).
  • Noted that shoplifters are not always young or easily identifiable; "most well-dressed people" were sometimes the biggest shoplifters on Newbury Street.
  • Explained that small businesses operate on thin margins (e.g., keystone pricing: buy for $50, sell for $100), making theft highly impactful.
  • Linked current shoplifting trends to the "Opiate Crisis" and organized theft (people stealing with lists).
  • Shared experiences from her 24 years working with businesses, including 10 years as President of Washington Gateway Main Street Board and 7 years on the Washington South End Business Alliance.
  • Stated that merchants often don't call the police because they perceive a lack of power, slow response times, or lack of prosecution.
  • Highlighted the impact of Mass and Cass on the South End, Newmarket, Roxbury, Downtown Crossing, and Roslindale.
  • Described seeing professional shoplifters with stolen goods from Prudential Mall or Copley Place.
  • Noted that many high-end stores now have stanchions and security, and CVS/Walgreens lock up items.
  • Cited the closure of a Walgreens on Washington Street in the South End due to being the "worst Walgreens of all of New England on shoplifting."
  • Mentioned the closure of a CVS near Boston City Hospital due to threats from needles and fentanyl.
  • Expressed concern that locked-up items drive consumers to online shopping (e.g., Amazon), hurting brick-and-mortar stores.
  • Provided solutions:
    • Mentorship: Large retailers (e.g., Target, Macy's) should mentor small businesses on security and loss prevention.
    • Police Engagement: Merchants should invite community service officers to walk through their businesses for security advice.
    • Lighting: Businesses should leave lights on after closing.
    • Grants for Security: Reintroduce city grants (e.g., CBG grants) for:
      • Shatter-resistant windows.
      • Security systems (during and after hours).
      • Exterior security cameras.
    • Walking the Beat: Re-establish police presence and relationships with merchants, similar to "phone chains" of the past.
    • Zoning Code Enforcement: Enforce the Boston Zoning Code provision that prohibits merchants from closing more than 50% of their windows, as excessive advertising creates blind spots and safety hazards.
    • Education: The Office of Economic Development should provide more education and workshops for small businesses on retail operations, security, and available resources (e.g., Boston Loan Development Corporation for fixtures).
  • Differentiated between "stealing for need" (e.g., a mother stealing milk) and organized, professional shoplifting, emphasizing the latter as the primary concern.
  • Stressed that small businesses are the "glue of the neighborhood" and need city support to survive.

Questions for Second Panel

• Councilor Edward Flynn:

  • Asked about the impact of a major national company like Walgreens closing on nearby businesses and the overall business climate.
    • Randy Grohe-Lathrop: Stated the Walgreens closure was a "huge loss" for the South End, especially for seniors relying on its pharmacy and for street traffic/jobs. Noted that national brands attract foot traffic and that a healthy retail district needs both national and small businesses. Shared an anecdote about a local grocery store with a "four-inch thick binder" of shoplifting incidents, whose owner felt calling police was futile.
  • Shared a text about food stealing also happening in the South End.
  • Asked if there's a "certain point" where businesses, due to the amount of stealing, can no longer sustain operations.
    • Randy Grohe-Lathrop: Confirmed it depends on the business, but emphasized that thin margins make even small losses significant. Mentioned that many entrepreneurs use personal credit cards, making them vulnerable. Advocated for BLDC funds to go towards "shoplifting-proof" fixtures. Described how professional shoplifters scout businesses for weaknesses. Shared a personal experience of having to lock a second door at her business due to frequent evening thefts. Highlighted a recent $8,000 jewelry theft from a South End business. Stated that the $1,200 larceny threshold without prosecution is "outrageous" and can wipe out a business.

• Councilor Erin Murphy:

  • Emphasized that small business owners cannot be expected to be both "chefs and detectives" or "crafters and police officers."
  • Asked how to strengthen relationships so small businesses know they have a strong partnership with BPD.
    • Randy Grohe-Lathrop: Suggested public announcements (e.g., on street furniture) about police services for businesses. Advocated against the return of solid roll-down grates, which signal a "closed for business" neighborhood. Proposed a dedicated "retail team" within BPD to proactively engage small businesses. Supported the mentorship idea between large and small retailers. Stressed the need for "neighborhood coordinators" to reach out to businesses, as owners are often too busy to seek help. Reiterated the need for city leadership and resources to educate and protect small businesses, especially given the challenges from online retail and rising costs.

Public Testimony

• Michael Nichols (President, Downtown Boston Alliance):
  • Represented commercial property owners and nearly 500 retail storefronts in Downtown Crossing and the Financial District.
  • Echoed previous panelists on the importance of the issue.
  • Thanked Councilor Flynn for calling attention to the issue.
  • Stated that the business climate downtown is "dramatically better" than a year ago, attributing this to the "Safe Shopping Initiative."
  • Reported the lowest retail vacancy level since pre-pandemic (down from 110 to 60-65 vacant storefronts).
  • Cited recent news of Uniqlo taking over a large vacant storefront as a sign of increased retailer confidence.
  • Acknowledged that problems still exist but expressed appreciation for the Council's focus and BPD's work.
• Brian McCarter (South End Resident):
  • Testified as a resident, not a business owner, but observed the community impact of shoplifting.
  • Noted the closure of a nearby CVS despite security measures, attributing it to high shoplifting rates.
  • Stated that stolen goods are often traded for drugs in the Mass and Cass area, fueling the opioid crisis.
  • Expressed concern that the trading of stolen goods is sometimes hidden under the guise of service providers, making it harder for police to address.
  • Highlighted the negative impact on residents, who lose local shopping options and face issues like double-parked delivery vehicles if online shopping becomes the only viable option.

Closing Statements

• Councilor Edward Flynn:
  • Thanked the Chair, Councilor Murphy, Superintendent McLaughlin, and Ryan Kearney.
  • Praised the developed partnership as a potential model for other cities.
  • Emphasized the need to work together, support police, and recognize the critical role of small businesses.
  • Committed to continuing support for residents, police, and small businesses.
• Councilor Erin Murphy:
  • Thanked Councilor Flynn for filing the docket.
  • Stressed the importance of supporting small businesses as providers of goods, services, and employment.
  • Pledged to continue being an ally to those working for business success.
• Councilor Brian Worrell (Chair):
  • Thanked all panelists, council colleagues, and public testifiers.
  • Expressed encouragement that "trend lines are moving in the right direction" due to collaborative efforts.
  • Affirmed the Council's commitment to investing in both the police department and small businesses.
  • Adjourned the hearing on Docket #1633.