Police Organization and Administration With Police Planning Historical Basis of Policing
Police Organization and Administration With Police Planning Historical Basis of Policing
Centurions – Roman soldiers carefully selected by the commander of the city garrison
under the authority of “Ceasar” from the Roman legions, whose man task is to maintain
internal peace and order, to arrest all violators of law and protect the city of Rome.
Almost all nations throughout the world adopted this effective method of
maintaining peace and order in a given community by designating law enforcers, who
they initially called “peace officers”, now commonly known as “police officers”.
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watch. Those detailed served without pay. They carried a lantern and a staff,
forerunners of the flashlight and night stick or today’s patrol officer.
Industrial Revolution
As the industrial revolution that transform the England from rural to industrial,
thousands of people left the countryside to look for work.
More people went to towns of Manchester and Birmingham which made these
towns over populated
Enormous number of people became unemployed and lived with the most a
appalling slum. With no protection of a welfare system, it was a atmosphere
that bred crimes.
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One of the greatest areas for theft in London was the River Thames. Merchant
ships leaves with expensive cargos constantly loading and unloading to
warehouse and docks
Riverside worker and organized gangs were responsible for the colossal loses.
A Sea Captain named John Harriot and magistrate Patrick Colquhoun devised
a scheme for policing the river.
They persuaded the merchant to pay for a marine police force called Thames
River Police which started operating on 1798
US Modern Policing
New York Police Department- Created in 1844 in New York, USA.
Recognized as the first modern style police department in the U. S. The largest
police force in the world modeled after the Metropolitan Police Service in
London.
Boston Police Department- The oldest police department in the US. The first
night watch was established in Boston in 1631. Formally founded in May,
1838.
AUGUST VOLLMER- Recognized as the father of Modern Law
Enforcement for his contributions in the development of the field of criminal
justice in the US. Author of the book, Police Administration which served as
the basic guide of the police organization in US. He was also the Chief of
Berkelley, California
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HISTORY OF POLICING (PHILIPPINE SETTING)
The Carabineros de Seguridad Publica was organized in 1712 for the purpose
of carrying outlaws of the Spanish government. Native Filipinos served up to the rank of
sergeant under the command of Spanish officers. They were with carbines as its name
indicates. It was the earlier version of mounted riflemen in the history of the Philippine
police system.
The Cuadrilleros - this was a body of rural police organized in each town and
established by the Royal Decree of 1796. This act provided that 5% of the able-bodied
male inhabitants of each province were to be enlisted in the police organization for three
years.
In 1836, the Spanish colonial authorities formed the Cuadrillo, a rural police
force, to enforce peace in the countryside. Six years later, its general function was
assumed by the Cuerpo de Carabineros de Seguridad Publica.
The Guardia Civil - this was created by a Royal Decree issued by the Crown on
February 12, 1852, to particularly relieve the Spanish Peninsular troops of their work in
policing the towns. These notoriously dreaded Guardia Civil in the provinces were
composed mainly of Filipinos who worked under the jurisdiction of the alcalde or
mayors. They followed a military structure and received semi-military training yet lacked
other dimensions of today’s police service.
The capture of General Emilio Aguinaldo, signaled the start of the American
occupation of the Philippines. Maintaining peace and order, particularly in the
countryside, remained the biggest problem of the Americans. The Americans failed to
subdue the followers of Aguinaldo like Gen. Macario Sakay. Hostilities continued in
Batangas, Mindoro, Cebu, Bohol and Samar. A military solution to the peace and order
problem was ruled, hence, the birth of the Philippine Constabulary.
The Insular Force: The Americans are credited for creating the Philippine
Constabulary, the principal instrument of the civil authorities for the maintenance of
peace and order. The PC began as a small unit—the Insular Force in 1901. It was set
up by virtue of Organic Act No. 175, enacted by the Second Philippine Commission on
July 18, 1901. The Constabulary then was composed of six thousand men led by
American officers and former members of the Spanish Guardia Civil. Under close
American direction and control, it functioned as a military organization.
Since its formation, the Constabulary had been primarily discharging police law
enforcement and public safety functions. Its officers and men had served with distinction
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both in the field of law enforcement and in combating violence and lawlessness, and in
various aspects of public service. There was even a time in history when they performed
the duties of teachers, sanitary inspectors, midwives, doctors and foresters.
As an insular police force, the officers of the Constabulary carried the civilian title
of “inspector.” Its peacekeeping duty was limited to areas where military rule had been
lifted.
Lt. Col. HENRY T ALLEN – was designated as the first Chief of the Insular
Constabulary.
Brig. Gen. RAFAEL CRAME - was the first Chief of the Philippine Constabulary
(when the Constabulary, after 16 years of existence, was placed under the Filipino
leadership)
Under the technicalities of the law, the Constabulary is a national police institution for
preserving the peace, keeping order and enforcing the law. In fact, its police nature was
expressly and clearly stated in Section 1 of Act No. 175, the organic act creating the
Constabulary. The same provision was retained in Section 825 of the 1917
Administrative Code.
Commonwealth Act No. 1 created the Philippine Army and ended the 35 years of
the Philippine Constabulary as an insular police. The creation of municipal and city
governments in the localities was also established its own police forces designed after
the American model of policing which was local in nature but built along military lines.
Chartered cities also created their own police forces whose members were appointed by
the City Mayor and whose appointments were to be confirmed by the Civil Service
Commission.
The Philippine Constabulary was absorbed by the United States of Armed Forces
in the Far East (USAFE) as a fighting unit and joined the Philippine Scout in fighting the
Japanese.
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Japanese Occupation Period
The Japanese Occupation of the Philippines had brought about terrors and fears
among the Filipino people. Enforcement of the laws was done by the Japanese Imperial
Army but mainly by the Japanese secret police known as Kempetai. The main function
of the Kempetai was the identification, location and arrest of Filipino guerillas including
their supporters. The Kempetai was the most feared unit of the Japanese army because
of their brutality in enforcing their functions. They were usually helped by Filipino traitors
who were made to identify guerillas and sympathizers while their head were covered by
a bag or cloth with openings for their eyes.
The country was left in shambles after the Second World War. Manila was in
ruins. Loose firearms and dead bodies littered the streets. This was also the period
when communist ideology had been propagated in the countryside and hard-line
supporters had been won.
It was during this turbulent period that the Philippine Constabulary was
reactivated into the Military Police Command. Faced with peace and order problems, the
Military Police Command was suffering from its own internal crises. The last war had
killed many Constables. There was a dearth for trained personnel who would be utilized
to address the problems.
The revitalized PC was in charge of the country’s peace and order “except those
which were purely military in nature.” Brig. Gen. Mariano Castañeda became chief of the
PC and instituted reforms. On June 21, 1948, President Elpidio Quirino offered general
amnesty to the Huks. Taruc, who had been elected a member of Congress representing
Pampanga, returned to Manila. But Taruc had no plans to surrender. He only went to
Manila to collect his back salaries and used the money for his comrades’ operations in
Central Luzon. President Ramon Magsaysay was credited for crippling the Huk
movement by mobilizing the Philippine Constabulary. Magsaysay used the “friendly
touch” for winning over the Huks, building roads for them and giving them lands.
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The Rise of the Communist Party of the Philippines
The Philippine Constabulary’s attempt to maintain peace and order did not end
with the decimation of the Huks. On December 26, 1968, Jose Maria Sison, a Political
Science student at the University of the Philippines, founded the Communist Party of the
Philippines. The communist ideology spread through a small discussion group called
Kabataan Makabayan organized by Sison and his colleagues in the middle sixties.
Sison then rose to become the leader of the CPP and organized the military wing of the
CPP, the New People’s Army. But the communists suffered a crushing blow on January
9, 1969 in the hands of the Constabulary who killed the most number of communist
leaders in one encounter in Orani, Bataan.
The upsurge of mass demonstrations and violence during the latter part of the
60s and the expansion efforts of the communist movement triggered the creation of the
PC Metropolitan Command. To quell the unrest, President Ferdinand Marcos issued
Executive Order Number 76 on July 14, 1967 establishing the PC Metrocom which
became the PC’s striking force as it was authorized to conduct 24/7 patrol in the entire
Metro Manila and was tasked to “supplement or complement local police action in the
repression and prevention of crimes…”
On August 8, 1975, Marcos issued Presidential Decree No. 765 establishing the
Integrated National Police with the Philippine Constabulary as the nucleus and all police
officers as components. They were all placed under the supervision of the Ministry of
National Defense.
The passage of Republic Act No. 4864, otherwise known as the Police Act of
1966 had brought about anew light in police reform throughout the country. The law
provides for a standard in the selection of policemen through the qualifications set forth
by the law, however, this did not eliminate the various negative factors that plague the
police forces. Jurisdictional restrictions among the police forces was addressed by the
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said law although training wad one by the Police Commission which was created under
the said law. The said law was passed and approved by Congress with end in view of
professionalizing police service which serves as the Code of all local police departments
in the country, some of its pertinent provisions read:
Sec. 2. Purposes – It is hereby declared to be the policy and purpose of this Act
to achieve and attain high degree of efficiency with the end in view that peace and order
may be maintained more effectively and the laws enforced with more impartiality. It is
also the object of this Act to place the local police service on a professional level.
One of the most significant provisions of R.A. 4864 is section 7 which specifically
define the duties of peace officers expressly provides, that:
Sec.7. Duties of Peace Officers – All members of the police agency shall be
peace officers. It shall be their duty to preserve peace and order; prevent the
commission of crimes, protect life, liberty and property; and arrest all violators of laws
and ordinances within their jurisdiction. They shall exercise the general powers to make
arrest, searches and seizures in accordance with law. They shall detain an arrests a
person only within the period prescribed by law.
By express mandate of P.D. 421, the Metropolitan Police Force (MFP) was
formed and created whose officers and men are regular members of the Philippine
Constabulary.
On the 13th day of June, 1972, P.D. No. 482 was issued, the principal purpose of
which (“purportedly”) is to bolster the entire police agencies in the country (2nd, 3rd, and
4th paragraphs. P.D. No. 482)
As distinguished from P.D. No. 421, P.D. 482 specifically lodged to the Philippine
Constabulary the powers of direct control, direction and supervision over the provincial
integrated police forces (1st sentence, Sec. 4, Supra). Several Presidential Decrees
were subsequently issued complementing, modifying and/amending other existing PD’s.
On the 8th day of August, 1975, P.D. No. 765 was issued establishing and
constituting the Integrated National Police (INP). Section 1 of the aforesaid
Presidential Decree provides:
The word “composed” as provided in that provision of law makes the Philippines
Constabulary a cohesive part of the INP. It became the central point of authority, even
as it remained as one of the major services of the Armed Forces of the Philippines (Sec.
5. P.D.765).
The issuance of P.D. 765 somehow finds constitutional sanction under Section 9,
Article XIV of the 1935 Constitution which expressly provides:
Sec.9. – The government shall organize and maintain a national police force to
preserve public order and enforce the law.
Observe the language of the law – “The constitutional duty of the INP under the
1935 Constitution is merely to preserve public order and enforce the law”. To defend
and protect the people were not included thereto as distinguished from the 1987
Constitution.
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After the dictatorship was overthrown by the EDSA revolution. Congress of the
Philippines acknowledged and recognized that unless the police be released from
military influence and indoctrination, the constitutional provision that “Civilian authority
is, at all times, supreme over the military” (Sec. 2, Art II, 1987 Constitution) will be
nothing but an empty piece of legislation.
Thus R.A. No. 6975 was passed and approved by the Congress creating the
Philippine National Police (PNP) and incidental thereto, dissolving the Philippine
Constabulary whose officers and rank and file were given the privilege to either
join the AFP of the PNP within the period as provided therein.
From a constabulary beginning, the Philippine National Police has been the
state’s warning of defiance to the forces of evil that threatened to undermine the
structure of public safety “a police organization composed of men who live in service,
and die in line of duty”.
Upon its signing into law on December 13, 1990, the PNP underwent a
transitory period; and on 31 March 1991, President Corazon Aquino named
General Cesar Nazareno as the first Director General of the Philippine National
Police.
On January 29, 1991, at Camp Crame, Quezon City, the Philippine Constabulary
and the Integrated National Police were retired officially and the Philippine
National Police was born.
Like any new evolving organization, the PNP suffered from birth pains. To
address these concerns, Republic Act 8551 or the PNP Reform and
Reorganization Act of 1998 was enacted on February 17, 1998 to amend certain
provisions of Republic Act No. 6975. This move was in response to the growing
clamor to transform the PNP “into a more responsive, effective and relevant
police organization.” Under this Act, the PNP shall be strengthened and evolved
into a highly efficient police force that is community and service-oriented and
fully accountable in the performance of its action.
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THE POLICE ORGANIZATION AND ADMINISTRATION
Police Organization
As mandated by the Constitution, other related laws and ordinances of the local
government units, the following are some of the goals of police organization:
Functional Units - Functional divisions of the department are described in the following
terms:
Territorial units
1. Post – a fixed point or location to which an officer is assigned for duty, such as a
designated desk or office or an intersection or cross walk from traffic duty. It is a
spot location for general guard duty.
2. Route – a length of streets designated for patrol purposes. It is also called LINE
BEAT.
3. Beat – An area assigned for patrol purposes, whether foot or motorized.
4. Sector – An area containing two or more beats, routes, or posts.
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5. District – a geographical subdivision of a city for patrol purposes, usually with its
own station.
6. Area – a section or territorial division of a large city each compromised of
designated districts.
1. Sworn Officers – all personnel of the police department who have oath and who
posses the power to arrest.
2. Superior Officer – one having supervisory responsibilities, either temporary or
permanently, over officers of lower rank.
3. Commanding Officer – an officer who is in command of the department, a
bureau, a division, an area, or a district.
4. Ranking Officer – the officer who has the more senior rank/higher rank in a team
or group.
5. Length of Service – the period of time that has elapsed since the oath of office
was administered. Previous active services may be included or added.
6. On Duty – the period when an officer is actively engaged in the performance of
his duty.
7. Off Duty – the nature of which the police officer is free from specific routine duty.
8. Special Duty – the police service, its nature, which requires that the officer be
excused from the performance of his active regular duty.
9. Leave of Absence – period, which an officer is excused from active duty by any
valid/acceptable reason, approved by higher authority.
10. Sick Leave – period which an officer is excused from active duty by reason of
illness or injury.
11. Suspension – a consequence of an act which temporarily deprives an officer
from the privilege of performing his duties as result of violating directives or other
department regulations.
12. Department Rules – rules established by department directors/supervisors to
control the conduct of the members of the police force.
13. Duty Manual – describes the procedures and defines the duties of officers
assigned to specified post or position.
14. Order – an instruction given by a ranking officer to a subordinate, either
a. General Order, b. Special, or c. Personal.
15. Report – usually a written communication unless otherwise specifies to be verbal
reports; verbal reports should be confirmed by written communication.
The line structure is the oldest, simplest and clearest form of organizational
design. As illustrated in Figure 1, authority flows from the top to the bottom of the
organization in a clear and unbroken line, creating a set of superior-subordinate
relations in a hierarchy commonly called chain of command. A primary emphasis is
placed upon accountability by close adherence to the chain of command.
The term “line” originated with the military and was used to refer to those units
which are to be used to engage the enemy in combat. Line also refers to those elements
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of a police organization which perform the work which the agency was created to
handle. Stated somewhat differently, line units contribute directly to the accomplishment
of the police. Thus, the primary line elements of a police department are uniformed
patrol, investigation, and traffic. Within the police agencies the line function may also be
referred to as “Operations”, Field Services”.
The pure line police organization does not have any supporting elements which
are internal or part of it’s such as personnel, media relations, training, or fiscal
management. Instead, the line police organization totally uses its resources to provide
services directly to the public. Typically found only in small towns, the line is the most
common type of police organization due to the sheer frequency of small jurisdiction.
However, most police officers work in larger departments which retain the basic line
elements, but to which are added various types of support units. These larger police
departments are often referred to as the line and staff organization.
As more demands for services are placed on police departments, there is a need
to add internal support functions so that the line functions can continue to provide direct
services to the public. The addition of support functions to the line elements produces a
distinct organization form: the line and staff structure. It is a combination of the line and
functional types and is found in almost all but the very smallest police agencies today. It
combines staff specialists for units with the line organization so that service of
knowledge can be provided line personnel by specialists such as the criminalists, the
training officer, the research and development specialists, the public relation officer, and
the intelligence specialists. Channels of responsibility is to "think and provide expertise"
for the line units which are responsible for "doing". The line supervisor must remember
that he obtains advice from the staff specialists, not command.
Matrix Structure
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PNP INTERNAL FORMAL STRUCTURE AND FUNCTIONS
The internal functions of the PNP may be generally grouped into three types:
mission-critical, conscience, and housekeeping functions.
a. Mission-critical functions – traditionally called “line function”, which directly deal with the
production and delivery of the services which the PNP is mandated by law to provide.
b. Conscience or “staff” functions – which include the formulation of plans, policies and
programs; development of rules, guidelines and standards; monitoring and evaluation of
organizational performance; research and development; strategic planning, and
establishing the capacity for continuing learning and improvement.
c. Housekeeping functions – which cover the administrative and financial activities,
including budgeting and accounting, procurement and physical assets, management,
human resource management, general administration services, and related logistical
services.
*UNITY OF COMMAND*
In the police service it is important that only one man be in complete command of
each situation and only one man be in direct command or supervision of each officer.
*SPAN OF CONTROL*
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Determining the Span of Control
2. Delegation of Authority
Authority
Authority involves the right to make decisions, give orders, and expect to be
obeyed in relation to work assignments. It is the right to require action of others. It is a
permission to make commitments, use resources, and to take other necessary action to
make possible the performance of the assigned work. Authority is described and defined
in job descriptions, policies, procedures, instruction manuals, routines, and special
instructions.
Delegation
Delegation is the act of transferring selected responsibilities, with commensurate
authority, to one or more subordinates. Delegation of authority should be from a superior
to his immediate subordinates. Theoretically the delegation should be to the position
and not to the man; but actually the kind of man determines the kind of delegation. First
of all, the subordinate must be able and willing to receive the authority. To be able he
must have a sufficient knowledge and experience to make good decisions and just be
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able to exercise his authority so that the goals will be achieved. And he must be willing
to accept responsibility.
2. According to Time Frame - the units are divided into shifts or watches
according to the time of day.
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