The NYPD probably isn't all concerned with spectral efficiency. They have a ton of T-Band frequencies licensed and deployed all over the city. 90% of how the NYPD operates is at the local precinct level, not citywide, and they need robust in-building portable coverage within each precinct. To that end, they not only have at least one transmitter per channel, but they also have satellite receivers for those frequencies. There are hundreds of these transmitters and receivers deployed, in addition to the comparators required to vote on the inbound RF for each receiver per channel.
A trunked system is impractical for this sort of operation, and would cost far too much to replicate the level of coverage they currently have within each precinct. In addition to the countless tens of millions of dollars to install trunked sites/subsites to provide that level of local in-building coverage, you'd have to equip 30,000+ subscriber radios with P25 trunking capability, which ain't cheap as compared with the conventional P25 they're migrating to currently.