Final Policy Paper

8/4/2019 Final Policy Paper

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International Management of Serious CrimeSingapore 201110 to 29 April 2011

STRATEGIC CRIME MANAGEMENTINITIATIVE

Institutionalizing a Comprehensive TrainingSystem for Investigation and DetectiveManagement to Address Efficiency andEffectiveness in the Resolution of Crime

POLICE SR SUPT KEITH ERNALD L SINGIANDirectorate for Investigation and Detective Management

Philippine National Police, Philippines

IMOSC Singapore 2011Major Event Planning: Key Challenges for Investigations Managers


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IMOSC Singapore 2011: Major Event Planning, Key Challenges for Investigations Managers ii

TABLE OF CONTENTS ii

Abbreviations / Acronyms iii

I. Executive Summary 1

II. Introduction 2

III. Background 3

IV. Reviews and Analyses 6

Quick Look at the Impact of Police Investigation 6

Weak Entry Level of the Police Force 7

Not Without Precedents 8

V. Proposed Solutions 10

VI. DISCUSSIONS 11

A. Selection of Criteria 11

B. Comparative Analysis 12

Qualitative Interpretations 12

Option 1 12(Special Teams to Assist in the Conduct of Investigation)

Option 2 13(Relational Seminars, Workshops and Crash Courses)

Option 3 13(Re-engineering of the PSBRC to the PPSC)

Option 4 14(Institutionalize a Comprehensive, Ladderized and

Hierarchical Training System)

VII. OBSERVATIONS AND RECOMMENDATIONS 15

Implementation Strategy 16

Assessment / Review Metrics 17Budget Allocation 17

VIII. CONCLUSION 17

IX. BIBLIOGRAPHY / REFERENCES 19


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IMOSC Singapore 2011: Major Event Planning, Key Challenges for Investigations Managers iii

ABBREVIATIONS / ACRONYMS

CIC Criminal Investigation CourseCIDDC Criminal Investigation and Detective Development Course

CJS Criminal Justice System

CSE Crime Solution Efficiency

DIDM Directorate for Investigation and Detective Management

ELK Extra-Legal Killings

ED Enforced Disappearances

GOP Government of the Philippines

IDEA Investigators and Detectives Eligibility Accreditation

ITP Integrated Transformation Program

NAPOLCOM National Police CommissionNUP Non-Uniformed Personnel

PMA Philippine Military Academy

PCO Police Commissioned Officers

PC/INP Philippine Constabulary/Integrated National Police

PDG Police Director General

PGS Performance Governance System

PMO Program Management Office

PNCO Police Non-Commissioned Officers

PNP Philippine National Police

POI Program of Instruction

PPSC Philippine Public Safety College

PSBRC Public Safety Basic Recruit Course

SIDD School for Investigation and Detective Development

SOP Standard Operating Procedure

TWG Technical Working Group

UNDP United Nations Development Program


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IMOSC Singapore 2011: Major Event Planning, Key Challenges for Investigations Managers 1

I. EXECUTIVE SUMMARY

This Strategic Crime Management Initiative (SCMI) proposes to institutionalize acomprehensive training system for investigation and detective management toaddress efficiency and effectiveness in the resolution of crime.

Measuring crime resolution through the conviction rate is a directive coming straightfrom the President of the Republic of the Philippines, His Excellency Benigno SimeonC. Aquino III. This executive directive heeds the immediate action and collaborationof all government agencies concerned with the whole Criminal Justice System (CJS)of the Philippines. The Philippine National Police (PNP) is one of the pillars of CJSdirectly involved in the system in terms of law enforcement. Hence, the PNP istasked to utilize all its resources in significantly contributing to crime resolution, withthe Conviction Rate as its index of success or failure.

The PNP has two (2) main functions, to wit:1. Crime Prevention (Policing); and2. Crime Resolution

Though the conviction of suspects will involve the judiciary branch of the government,fast-tracking efficient resolution of crimes including the arrest of suspect/s will aid andfacilitate the judicial system to firmly and accurately state a resolute conviction inshorter period of time.

Crime resolution involves investigation and detective management. These are two (2)areas where the PNP is apparently insufficient to address, mainly due to inadequate

practical training and education of its police force. There are two (2) mainconsiderations for this:

1. Most of the police workforce that enter the PNP structure have derisoryskills and knowledge on investigation and detective management; and

2. Most of the police personnel are not truly interested in expanding his/herskills and knowledge on investigation and detective management becausethere is an apparent lack of career growth in this field.

Hence, the purpose of this SCMI is to be the basis for a policy that will:1. Develop and institutionalize a comprehensive ladderized and hierarchal

training system;2. Elevate the investigation standards and develop a scheme for detective

management for the PNP;3. Integrate the Conviction Rate as measure / criteria of resolving crimes

through an efficient and effective investigation works and detectivemanagement; and

4. Set a career growth path for PNP investigators and detectives.

This study will show that it is highly recommended to institutionalize a comprehensivetraining system for investigation and detective management in order to address theefficiency and effectiveness in the resolution of crimes up to the conviction stage incourts. Significantly, this will:

1. Address the one of the two (2) main functions of the PNP structure;

2. Lay the foundation for efficient and effective police investigation works anddetective management;


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3. Set a career path for PNP investigators and detectives through itsladderized and hierarchical training system; and

4. Set forth the Conviction Rate as Index of Crime Resolution.

II. INTRODUCTION

The topic of this Strategic Crime Management Initiative (SCMI) is the necessity ofinstitutionalizing a Comprehensive Training System for investigation and detectivemanagement in order to address the efficiency and effectiveness in the resolution ofcrimes up to the conviction stage in courts.

Though the conviction of suspects will involve the judiciary branch of the government,

fast-tracking efficient resolution of crimes will aid the judicial system to firmly andaccurately state a resolute conviction in shorter period of time. Thus, the efficient andeffective resolution of crimes will directly be measured in terms of Conviction Rate.

Crime resolution is one of the two (2) main functions of the PNP. Increase in crimeresolution requires competent and adept investigators and detectives. If ConvictionRate will be the index of crime resolution, then it is an impetus that the police force ofthe PNP should be well-trained and educated in investigation works and detectivemanagement. Apparently, 74.80% of the PNP investigators have not received formaltraining on investigation and/or detective management.

Most of the PNP police force entered with only a few hours of study, not even

practical training, of investigation works. Also, most of the current PNP personnelshow no practical interest in further developing their skills and knowledge ininvestigation works and detective management because at present, a career growthpath in this field has not yet taken shape.

To address this issue, the following goals are set: Develop and institutionalize a comprehensive ladderized and hierarchical

comprehensive training system; Elevate the investigation standards and develop a scheme for detective

management; Integrate the Conviction Rate as Index of resolving crimes through an

efficient and effective investigation works and detective management; and Set a career growth path for PNP investigators and detectives.

Hence, this paper will show the following significance of institutionalizing acomprehensive training system for investigation and detective management:

Address one of the two (2) main functions of the PNP structure; Lay the foundation for efficient and effective police investigation works and

detective management; Set a career path for PNP investigators and detectives through its

ladderized and hierarchical training system; and Set forth the Conviction Rate as Index of Crime Resolution.


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This paper will tackle the various relevant issues establishing the apparent reality ofthe PNP investigators and detectives. It will consider essential historical perspectivesthat lead to the manifestation of the problem and its consequences if not addressedproperly and immediately. Likewise, various options will be discussed in addressing

the issue at hand, while criteria will be set in order to determine which of theseoptions will be highly recommended as the best course of action.

However, this study is limited only to addressing the much-needed formal trainingand practical education for the police force in order for the PNP to deploy morecompetent investigators and detectives in the field, nationwide. Logistics andequipment are another issue. Also, an updated and more reliable data on the profileof the PNP police force and the functional structure for investigation and detectivemanagement are yet to be reviewed, established and possibly revised. Although theSchool for Investigation and Detective Development (SIDD) has started emancipatingthe insufficiency of the required training and education, its Criminal InvestigationCourse (CIC) is only in its fourth (4th) month of implementation. This means that the

assessment system integral to the CIC does not have enough data yet to evaluateand/or measure the degree of learning competencies vis-a-vis actual investigationworks and detective management.

It will be shown in this paper that the CIC initiative of the Directorate for Investigationand Detective Management (DIDM) is a good start. In fact, it serves as the pre-cursorfor developing a comprehensive training system for investigation and detectivemanagement. But as such, obstacles have been encountered, which also delimits thebreadth of this study, to wit:

1. There are reasonable doubts on the reporting of the actual crime scenariosdown to every police station level;

2. The perennial change/turn-over of investigators;3. Undisclosed information on the budget or funds available or allocated

specifically to investigation and detective management training; and4. Limited training staff and pool of instructors.

Nonetheless, this paper focuses on addressing the main issue the insufficiency ofcompetent investigators and detectives on the field.

III. BACKGROUND

Shortly after his assumption into office, His Excellency President Benigno S AquinoIII aired his concern over the continuous unabated killings particularly on extralegalkillings, including enforced disappearances, which have tremendous effect on thePNPs Crime Solution Efficiency (CSE). His concern rationalizes that convictions incourt of an accused person and not the mere filing of a case in court or arrest ofsuspects shall be the yardstick of police efficiency and effectiveness in its campaignagainst criminality.

The recent developments in the crime environment have put the PNP on the spotand have questioned its institutional ability to effectively investigate and resolveserious and sensational cases if not, manage a coherent and holistic approachtowards developing an air tight case against criminal offenders. While the PNP has

recorded several success stories in various fronts, it appears that its investigativeprocesses deserve another look considering that investigation is the heart and soul ofpolicing.


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It is therefore incumbent upon the PNP in coordination with the other pillars ofCriminal Justice System (CJS) to devise a new and different approach in order toimprove resolution of crime that will eventually upgrade the rate of conviction.

Towards this end and in line with the new thrustIntegrated TransformationProgram-Performance Governance System (ITP-PGS) and other existing policies ofthe PNP leadership which are envisioned to institutionalize and standardize thefunctional set up of the different levels of investigation offices in the organization, theneed to institutionalize a comprehensive training system is of paramount importance.

A quick look at the PNP investigative processes would lead us to examine its maincomponents, which basically include organizational structure, practices, systems andprocedures, new technology and people, who must be competent and effective if thesystem were to function well.

The system will be in the form of a hierarchical concept of training which is to train

Police Commissioned and Non-Commissioned Officers assigned as investigatorswho are the principal actors in the solution of cases and subsequent conviction ofoffenders or those assigned in an investigation office along side with their respectivepositions, on a progressive manner in the same way as they are promoted topositions of higher responsibilities.

It is quite ironic that the PNP offers only one (1) regular investigation course, theCriminal Investigation and Detective Development Course (CIDDC) now the CriminalInvestigation Course (CIC) and only for Police Non-Commissioned Officers (PNCOs).Over the years, the organization seems to have forgotten to conceptualize andimplement regular training programs both for Police Commissioned Officers (PCOs)and PNCOs. As training is the bedrock of competence, it is of no wonder that most

cases remain unsolved while solved ones barely make it to conviction.

One of the areas that need immediate attention is the lack of competent and effectivefield investigators who possess the skills and the right attitude to work on a case andpursue it until the case is resolved by the courts. Another vital area that the PNP hasto look into is shaping and developing its detective management curricula andstructure.

Historical Perspectives

History has its stake in the development of the PNP as an efficient and highly reliablepolice organization.

Historical development of the whole PNP structure as an independent organizationfrom the military shows a backlog in developing a continuing professional educationinternal to the police force. Prior to the EDSA I Revolution, known worldwide as thePeople Power Revolution of 1986, the policing tasks are still under the militarysupervision in the guise of the defunct Philippine Constabulary/Integrated NationalPolice (PC/INP). The succeeding administration has put in place a law that will makethe police functions independently from the military that eventually lead to theestablishment of the PNP.

Though the DIDM was concurrently instituted with the establishment of the PNP, thefollowing provide us an overview of the priorities of the previous Chiefs of the PNP:


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Ebdane (2002-2004) O.N.E. PNPAglipay (2004-2005) Impact and Doable Projects / ProgramsLomibao (2005-2006) Stronger Police Stations

Calderon(2006-2007) Housing Program (boosting the morale of the PNPpersonnel)

Razon (2007-2008) Image Building (Mamang Pulis brought back thepolice closer to the people)

Versoza (2008-2010) Integrated Transformation Program (ITP)Performance Governance System (PGS)

The preceding undermines the full development of necessary trainings and practicaleducation for field investigators and detectives. Only now did PNP breathes new lifeto investigation and detective management, under the present Chief, PNP, PDG RaulM Bacalzo, who was a former head of the DIDM.

Recent Observations

The earlier attempts to address the issue of competency in field investigation anddetective works were put to futile as the recent review of cases in extra-legal killings(ELKs) and enforced disappearances (EDs) conducted by the European Union Philippines Justice Support (EPJUST) Program reveals the following ineptness:

1. Task Forces are established on ad-hoc basis and investigators areappointed to the cases based on availability and not on sufficient skills andcompetency;

2. There are no established contingency plans or Standard OperatingProcedures (SOPs) on perfunctory measures to be undertaken;

3. There is a general lack of trained investigators;4. There is no institutional safeguard of a learning organization such as

mandatory case evaluations, investigation feedback from prosecutorsand/or other follow-up / lessons-learned activities; and

5. Case management is generally poor and lacking.

In synthesis, these findings imply a lack of comprehensive competency training oninvestigation and detective management across the PNP structure from PNCOs toPCOs.

Exigencies

The main issue is now established that the PNP must breed competency in fieldinvestigation and detective management to address the efficiency and effectivenessin the resolution of crime and eventually increasing the rate of conviction.

Secondary but equally relevant issues are the following:

1. The police force is still insufficiently equipped, apart from its quantity ofuniformed personnel;

2. Career path in investigation and detective management remains unseenor un-chosen among the police force implying a very low interest in thismain function of the PNP;

3. Eligibility for investigators and police detectives is still virtually non-existentinspite of the approved Memo Circular by the former Chief, PNP; and


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4. The Public Safety Basic Recruit Course (PSBRC) of the Philippine PublicSafety College (PPSC) remains inadequate in terms of the curricula to fullysupply competent new police force.

If these issues will not be given priority attention, the apparent situation mayeventually lead to the following scenario:

1. Resolving crimes will remain a struggle for the whole PNP structure;2. Lesser convictions in courts as crime cases remain poorly managed;3. Crimes may rise owing to more unresolved crimes and fewer convictions in

courts;4. Failure to address the lack of competent investigators and police detectives;5. The Filipino people may find the PNP as inept, unreliable and unworthy of

trust and confidence;6. Failure to address one of the main function of the PNP may lead to eventual

dissolution;

7. Socio-economic impact of low crime resolutions would mean fewerinvestors, lesser job opportunities, higher inflation, closure of businessesand others; and

8. Socio-political impact of low crime resolutions would spell widespread fearof crimes and even socio-civic unrest or worst, civil war.

The current crime situation beckons a radical transformation from within the policeforce of the PNP the development of its competency in resolving crimes.

IV. REVIEWS AND ANALYSES

The lack of extensive training of the entering police force from the PPSC, the futileearly attempts to address the issue of competency of field investigators and policedetectives, and, the recent review of unabated high-profile crimes by a foreign-assisted independent body, all pertain to the re-engineering of the existing trainingservices internal to the PNP up to the development of a comprehensive, ladderizedand hierarchical training system for investigation and detective management,eventually leading to its institutionalization.

Quick Look at the Impact of Police Investigation


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The diagram above shows the general procedure by which the crimes go through theCriminal Justice System in the Philippines. The criminal procedure basically startswith the police investigation. This shows the great significance of an efficient andeffective investigation work and detective management by the police force. If at thestart, the investigation fails, the whole process is imperiled. If, however, theinvestigation went on a good start but the criminal case was not managed properlyup to the judgment or conviction stage, then the crime remains unresolved. Hence, itis direly necessary for the police force to have competent field investigators andpolice detectives in order to bring the case into a resolute conviction. Since thebedrock of competency is skills and knowledgeability, it is an impetus that the policeforce undergoes a well-structured comprehensive, ladderized and hierarchicaltraining system.

Weak Entry Level of the Police Force

It was well appreciated that the PPSC for developed the PSBRC as mandated bylaw. However, for more than two decades now since its implementation, PSBRC isno longer adequate to provide an extensive training in terms of police investigation.

According to its curriculum, the PSBRC devotes only a total of 38 hours, and for mostpart, are basically theoretical discussions practical training such as role-playing andcase scenario build are not included. It is of no wonder that the EPJUST evidentlyfound the lack of competency in handling investigation and detective works as anapparent deterrent to solving crimes.

In the same manner, the table below shows that as of January 2011, a deplorable

74.8% of the total PNP personnel occupying investigative positions do not haveformal training on investigation and/or detective management.

PROFILE OF INVESTIGATORSAs of January 2011

PROs (UNITS) DESKsNR PERSL OCCUPYING

INVESTIGATIVEPOSITIONS

NR OF PERSL WITHFORMAL TRAINING

NR OF PERSL W/OUTFORMAL TRAINING

PERCENTAGE(%)

NCRPO 583 301 282 48.37

PRO ARMM 181 53 128 70.72

PRO COR 358 157 201 56.15

PRO CARAGA 338 58 280 82.84

PRO 1 660 164 496 75.15

PRO 2 399 124 275 68.92

PRO 3 798 217 581 72.81PRO 4A 719 168 551 76.63

PRO 4B 339 79 260 76.70

PRO 5 359 82 277 77.16

PRO 6 451 77 374 82.92

PRO 7 389 52 337 86.63

PRO 8 383 90 293 76.50

PRO 9 328 18 310 94.51

PRO 10 77 51 26 33.77

PRO 11 407 42 365 89.68

PRO 12 222 29 193 86.94

TOTAL 6,991 1,762 5,229 74.80

This profile of investigators implies that it is imperative and vital for the PNP to closethe gap of ineptitude among its present investigators.


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Not Without Precedents

The looming trends in criminality in the mid-1990s prompted the National Police

Commission or NAPOLCOM to issue Resolution 97-032, which became the legalbasis for the PNP to implement an investigation and detective management program.With this resolution, the Directorate for Investigation was renamed to the presentDirectorate for Investigation and Detective Management or DIDM, whose main task isbasically capacity-building for all field investigators and police detectives, fromtraining to accreditation to eligibility formulation and policy making. In consonancewith this, the same memo gave birth to the School for Investigation and DetectiveDevelopment (SIDD) to develop and implement a special training program fordetectives, under the tutelage of the DIDM.

However, consequential events made this resolution ineffective until 2002.

Former Chief, PNP Ebdane issued a memorandum to standardize the selection andaccreditation of PNP investigators in 2002, not because of the increasing crimeincidents but the alarming rise in the number of unsolved cases from 1998 up to thatyear. This entails that even nine (9) years ago, there was already a public perceptionthat the PNP is incapable of solving crimes, eventually pointing to the persistent lackof competent field investigators and police detectives.

This standardization actually intended to create rank-based investigator positionswith corresponding training programs and compensation appreciation. This meansthat as early as 2002, there was already an attempt to develop a career path alongthe field of investigation. But in a technically assisted study sponsored by the UnitedNations Development Program (UNDP), an in-depth transformation program must beundertaken, overhauling the whole operations of the PNP, which was then underformer Chief, PNP Aglipay.

The transformation study report, released in June 2005, indicated some perturbingperformance issues with criminal justice, marking a low conviction rateof about 18%of the criminal cases filed in courts. It was also indicated that about 35% of the casesin courts were archived due to the inability of the police to apprehend and producethe suspect(s). The report further shows that evidences are either inadequate ortampered, connoting either an inadvertent or deliberate mismanagement of cases.Accordingly, these issues have profound implications in particular to the competencyof PNP investigators and detectives, and in general to the public trust and

confidence.

Expectedly, the public opinion on the PNP was very wary. Succeeding Chief, PNPLomibao issued Memorandum Circular 2005-009, intending to institutionalize asystem of Investigators and Detectives Eligibility Accreditation or IDEA through thecreation of its corresponding board or the IDEA Board.

The IDEA circular seeks to establish policies on human resources development, andone of which mandates all eligible police investigators and detectives to undergo theregular enhancement courses offered by the PNP Detective School, for purposes ofcareer advancement, job enrichment and specialization. Also, it stipulates salaryemancipation for specialized investigators and detectives.


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Clearly, the IDEA circular does not really seek to reform or re-engineer the trainingsystem, rather, only rely on the courses already at hand, which were later found to bestill inadequate. Also, the job enrichment part of the circular pertains to rotation ofinvestigators across police stations so that they will be accustomed to a wide array of

crime situations.

With the PNP Transformation Program at hand, then Chief, PNP Lomibao opted tostrengthen the police stationas his priority program, underlining the presence of thepolice force in every community. Though this police visibility tactic may temporarilydrive away or derail the incidents of criminality, it does not directly address the issueof competency in field investigation and detective management.

The PNP Transformation Program has also suggested reforms on the social welfareof the uniformed personnel. Heeding this plea, the succeeding Chief, PNP Calderonfocused his reforms on providing housing program for the police force. Again, crimeresolution policies were secondary, albeit the housing program amplified enthusiasmamong the police force.

Now that the uniformed PNP personnel can worry less about their remunerationpackage, the following Chief, PNP Razon aimed at bringing back the trust andconfidence of the public through building the image of the Police as a civilian incharacter apart from being an authority of law enforcement. This directly hit one ofthe two main functions of the PNP, which is crime prevention (community policing),by instigating in the minds of the people that they can easily seek assistance orreport any crime incidents to their community police station. This way, appropriatecoordination between the police station and the community is established.

The public image of the police may have gained the peoples higher approval rating,even aptly responded to the requisites of crime prevention, but, the two mainfunctions of the PNP need to be addressed on equal footing.

Previous to the incumbent, Chief, PNP Versoza finally laid the grounds ontransforming the PNP to a more capable, effective and credible organization, true toits two main functions. The gains of his Integrated Transformation Programmay besummed up to the following:

1. Programs should be sustainable and comprehensive towards achieving thePNP Vision, not personality-based or dependent on the incumbent Chief,PNP;

2. Creation of the Program Management Office (PMO) to solely manage the

transformational reforms, ensuring continuity amidst change in leadership;3. Development of Transformational Leadership across the structure, fromnational to local to every police in every community;

4. Establishment of the Citizens Charter for a more transparent, accountableand responsive police service;

5. Enforcement of the Barangay Peacekeeping Action Teams to strengthencrime prevention and to increase active reporting of crime incidents from thecommunity to the police station;

6. Support programs for citizens empowerment;7. Development of moral ascendancy programs;8. Capability enhancement measures; and most importantly9. Instituting the Performance Governance System (PGS) aimed at providing a

comprehensive framework that will translate the organizations objectivesinto a coherent set of performance measures.


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Continuing the reforms of his predecessor, incumbent Chief, PNP Bacalzo paidattention to capacity building as an integral part of the transformation. Thisnecessitates a review of the current training programs internal to the PNP as a step

towards heeding the call of the President to increase the conviction rate.

Going back to the transformation study report released six (6) years ago, it was notedthe low conviction rate is directly proportional to the competency of policeinvestigators and detectives, which in turn reflects the adequacy of the trainingprograms the police force undergo.

A Letter of Instruction was issued to re-engineer the Criminal Investigation andDetective Development Course (CIDDC) into a more comprehensive trainingprogram, thus paving the way for the recently implemented Criminal InvestigationCourse or CIC.

The development of the CIC is a testimony that indeed, there is an urgent need toinstitute a comprehensive training system (not just a set of programs) that isladderized and hierarchical in form yet sustainable and can be institutionalizedamidst change in the PNP leadership all aligned with the present IntegratedTransformation Program.

Looking back at the profile of the present investigators nationwide, 74.8% still needformal training and practical education on investigation and detective management.

V. PROPOSED SOLUTIONS

The apparent general lack of competency among the present PNP investigators anddetectives, as established in the preceding policy paper, is surrounded by thefollowing issues:

1. Police investigation, as an integral part of the CJS, directly affects theoutcome of a case, thus significantly contributing to the low or highconviction rate which in turn is now pressing directive coming from thePresident of the Republic of the Philippines;

2. The entry level of the police force is weak in practical training oninvestigation and does not include basic detective course;

3. Legal bases for developing training programs for investigation and detectivemanagement, and, for instituting a career path with corresponding salaryadjustments, were laid since 1997, but the corresponding attempts toimplement and institute these were impotent due to the priorities set by theprevious leaderships leading to the present crisis on competency of thecurrent roster of PNP investigators and detectives; and that

4. An integrated approach in transforming the PNP, to include the overhaulingor even the development of a sustainable comprehensive training systemfor investigation and detective management, which will also set forth a solidbasis for eligibility, has just recently took off with the initial implementation ofthe CIC.

In these regards, the following options are suggested to resolve the crisis incompetency, alongside its surrounding issues:


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Option 1: Create Special Teams to Assist in the Conduct of InvestigationThis option will outrightly address the impact of Police Investigation inthe Criminal Procedure.

Option 2: Avail of Relational Seminars, Workshops and Crash CoursesThis option will immediately address the pressing issue for specializedtrainings of field investigators and police detectives, which wasoutlined in the precedent attempts.

Option 3: Recommend Re-engineering of the PSBRC to the PPSCThough this option may take time for reviewing and re-engineering,this will address the weak entry level for the future police force.

Option 4: Institutionalize a Comprehensive, Ladderized, HierarchicalTraining System

This option requires, initially, the development of a comprehensivetraining system for almost all PNP uniformed personnel from PNCOsto PCOs in a ladderize and hierarchical form yet must besustainable for it to be institutionalized.

VI. DISCUSSIONS

A. Selection of Criteria

This paper shall employ an inductive way of resolving the crisis, byaddressing the issues surrounding the main problem eventually leading to itsmost appropriate course of actions. Hence, given the summary of the persistentproblem in the previous discussion, the following criteria are hereby set:

1. CompetencyWill it address the competency need of the current 74.8% of the totalPNP personnel occupying investigative positions who do not have anyformal training on investigation and/or detective management?

2. Conviction RateWill it significantly raise the conviction rate to a satisfactory level?

3. Career DevelopmentWill it set forth a career path in terms of professional growth withcorresponding appreciation in compensation?

4. SustainabilityIs the option sustainable in the long term or will it be modifieddependently on constantly changing factors?

5. ProgressivenessWill it pave the way to a highly structured management of crime cases,alongside, a systematic way of evaluation and assessment, including

the standardization of eligibility and accreditation process, in the future?


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6. Cost ImplicationsGiven the depth and breadth of the option, will it be cost-efficient in thelong run? Cost-efficiency will the expected outcomes justify the budgetonly as an expense or as an investment in resolving the main crisis?

7. Public OpinionWill it suffice the public clamor for a more credible and functional PNP

based on the findings of the transformational study report?

B. Comparative Analysis

Based on the criteria set, the proposed options for resolving the crisis arecomparatively analyzed in the table below:

Criteria Option 1 Option 2 Option 3 Option 4

Competency

Conviction Rate Career Development

Sustainability

Progressiveness

Cost Implications

Public Opinion

Legends:

- the option complies with the criteria, thus, option serves as advantageous - the option does not comply with the criteria, thus the option serves as

disadvantageous to resolving the crisis

Qualitative Interpretations

Option 1: Create Special Teams to Assist in the Conduct of Investigation

One of the pressing issues surrounding the crisis is the competency need of thepresent 74.8% of the total PNP personnel occupying investigative positions, who donot have any formal training on investigation and/or detective management.Assigning special teams for an on-going case may suffice the immediacy of that casebut it does not address the competency issue.

The EPJUST report shows that even in high-profile cases being handled by specialtask forces that include high-ranking PCOs, conviction remains elusive. Based onthis report, case management is generally poor.

Taking into consideration the on-the-job training that may be brought about byproviding assistance to field investigators through the assigned special teams to theircase, the assisted police unit may gain valuable experiences out of this mode oflearning. However, there is no set career path for this situation, and, theircorresponding specialist pay remains temporal and not actually integrated into theircompensation package.

Reviewing the selection process in the precedents, the special teams are usuallycreated on an ad-hoc basis and more often than not, according to availability ofinvestigators and not based on the bedrock of competency. This shows a lack of


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acumen on the operational part, thus, this option cannot be sustainable, and in thelong run, it will not progress to a highly structured management of criminal cases.Besides, none of the limited trained investigators has taken any extensive training ondetective management, which will entail budget allocation for rush and compacttraining programs without the guarantee of increasing competency in resolvingcrimes.

Though the formation of special teams or task forces may capture initial approvalfrom the public as it will set an impression that the PNP is really doing some thing toabate the situation, the facts have pointed out that due to the absence of a solidfoundation for competency, such efforts may still be futile and the conviction rate willremain low, which will not significantly contribute to the credibility and functionality ofthe PNP.

Option 2: Avail of Relational Seminars, Workshops and Crash Courses

The nature of this optional solution entirely depends on the training programs beingoffered by institutions or entities outside of the PNP structure. Over the years, theseshort-termed programs, which are usually highly specialized, have mostly come fromforeign agencies. Only a few local entities have sufficient program offerings, such asthe PPSC, which offers specialized crash courses that are based on the rank.

Typically, the format and structure of these external program offerings are abridgedin contents and condensed in length of time. Mostly, cases are presented and keylearning areas are identified in the conduct of these programs, but lacking ininteractive tools such as role-playing, case-scenario build-up and other practicalactivities, and are noted entirely developed to meet the specific competency needs of

the PNP. Also, these programs are not always readily available when the need arisesor even on a regular basis. Since these are formulated and will be conducted by thirdparty professionals, these programs come with a premium on price. However, justlike in the previous years, most of the past seminars conducted by third parties weresponsored by their international agency partners, implicating only a minimumlogistical cost for the PNP.

With the criteria at hand, the nature, format, structure and availability of theseprograms will not suffice the competency need of the PNP, eventually maintainingthe conviction rate at its apparent unsatisfactory level. Also, such programs areexternal and not integrated into the professional profiling of the police force, thus, willnot set forth a career path. Further, since these programs rely on third parties, this

optional solution is definitely not sustainable. Moreover, sending the police force tovarious third party training programs will create a public image that the PNP is utterlynot capable of training its own rank and file.

Nonetheless, one importance of these third party programs would actually providethe PNP with new perspectives in developing its own structure towards bettermanagement of criminal cases, with various ways to evaluate and assess the casesand some fresh ideas in strengthening the eligibility and accreditation process.

Option 3: Recommend Re-engineering of the PSBRC to the PPSC

Re-engineering the curriculum of the PSBRC is seriously a gargantuan task for thePPSC with the following reasons and implications:


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1. Needs analysis will be conducted prior to the revision of the course, whichentails in-depth study and allocation of resources;

2. Extending and intensifying the investigation module of the course willrequire academic reforms to suit the required entry level of competency;

3. Crime resolution does not end in investigation, hence a basic course ondetective operations and management has to be integrated into thecurriculum, which will have academic implications as well;

4. Re-engineering of the course may be delimited by available resourcespeakers, trainers and even professors, including the compensatorypackage for these academic professionals;

5. PSBRC is a basic course for new recruits. Revising it would also implicatefurther revisions in all related courses offered by the PPSC for advancedlearning and training, especially for those who are already uniformedpersonnel of the PNP from PNCOs to PCOs;

6. PPSC must reduce its students per class of between 100 to 200 per class

to only a maximum of 50 per class to ensure the efficient monitoring of theexpected learning outcomes this may be delimited by the availablefacilities, professors / trainers and other required academic resources;

7. The re-engineering will definitely take an extensive period of time fromneeds analysis to measurement and evaluation to practical assessment,including the pilot procedures prior to full implementation; and

8. This undertaking should be in consonance with the current IntegratedTransformational Program of the PNP, requiring a close coordination withthe PNP DIDM and Training Service.

Nonetheless, the re-engineering of the PSBRC, alongside all its implications, wouldhave the following positive impact in the long run, to wit:

1. It will strengthen the entry level of the police force with the minimumrequired competence and aptitude;

2. As the new recruits would possess better skills and knowledgeability, thePNP may start providing them with work-related training programs alignedto the ITP, leading to a progressive structure, in the future, able to managecriminal cases;

3. If the revised course and its implications will produce the expectedoutcomes, this optional solution can be sustained in the future; and

4. This will significantly contribute to a more credible and functional PNP

However, the following will not be directly addressed by this option:1. The urgency of significantly raising the conviction rate;

2. The career path for the existing PNP uniformed personnel remains aninternal issue; and

3. Limitation of resources, since this option will definitely has to be supportedand sustained with a huge budget until its full implementation.

Option 4: Institutionalize a Comprehensive, Ladderized and HierarchicalTraining System

This option meets all the criteria set forth as follows:1. With the CIC already in place, the PNP will just have to continue developing

the ladderized training system;

2. The internal development of the training system will definitely beprogrammed according to the competency needs of the PNP personnel andaligned with the current ITP;


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3. It will lead to the development of a competency-based continuingprofessional education for investigators and detectives;

4. This will not take an extensive length of time since the PNP already has aunit dedicated to its development, thus, quick actions and assessmentintegral to this training system will aid in faster resolution of crimes leadingto a significant increase in the conviction rate;

5. The ladderized and hierarchical form of the training system will lay thefoundation for a career path in the field of investigation and detectivemanagement, providing professional growth and correspondingappreciation in the compensation package;

6. Once institutionalized, the training system will be sustainable amidstchanges in the leadership of the PNP since the development of its courseswill include progressive tools and techniques that will allow a keen foresighton future needs;

7. It will provide systematic evaluation and assessment tools, paving the way

for a highly structured management or crime cases, including a solid groundon standardizing the eligibility and accreditation process;8. Budget allocation will be seen as an investment rather than an expense,

since the expected learning outcomes will not only be quantifiable but willbe practically put in place in the resolution of crimes; and

9. Having an internal institutionalization of a comprehensive training systemwould raise sophistication in the image of the PNP, attracting more recruits,acquiring public approval, and eventually fulfilling its two main functions allsummed up to a credible, reliable and efficient PNP structure, contributingto socio-economic growth and socio-political stability.

VII. OBSERVATIONS AND RECOMMENDATION

Bearing in mind the main crisis discussed in this inititiative, among the proposedoptional solutions, it is highly recommended to institutionalize a comprehensive,ladderized and hierarchical training system to address the apparent general lack ofcompetency amongst PNP investigators and police detectives, in order to efficientlyand effectively resolve crimes, leading to progressive and significant raise in theconviction rate.

Key areas for consideration of the recommended solution are:

1. Needs analyses regarding competency requirements in various levels mustbe well established, along with updated profiling of the PNCOs and PCOs;

2. Curriculum development should lay a solid foundation for competency,adapting modern tools and techniques and providing the participants tohave a keen foresight on the future of investigation and detectivemanagement in the country;

3. The training system must be ladderized and lay the grounds for a careerpath that provides professional growth and corresponding salaryemancipation;

4. Temporary incorporation of leveling-off study programs to acquire the pre-requisites of the training programs, especially on advanced courses;

5. The training system must be extensive in its breadth of contents and

intensive in the development of skills and knowledge amongst its targetparticipants;


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6. All investigative and/or detective positions should require correspondingcourses in order to prepare the police force to be responsible andaccountable when they occupy such positions based on the functionalstructure of the Investigation and Detective Offices across the nation;

7. Existing or precedent Memorandum Circulars or directives should bereviewed in order to integrate its essentials to the development,implementation and institutionalization of this training system;

8. The target participants would be from PO1s to Chief Superintendents; and9. The whole training system must be in consonance with the PNP ITP.

Implementation Strategy

1. Draw a conceptual framework and general mechanism of actions for thedetailed development of the ladderized and hierarchical training system

- A Consultation Team, comprising of key officers of DIDM, SIDD included,pre-selected NUPs and third party consultants, would be needed toformulate this.

2. The Consultation Team shall organized Technical Working Groups (TWGs)in designing and developing the curriculum per level, in relevance to thePNP functional set-up:

a. For PNCOs:PO1 to PO3 as investigators of the casesPO3 to SPO2 follow-up investigation and man-hunting and

arresting of suspectsSPO3 to SPO4 as supervisors of investigators and detectives

b. For PCOs:PInsp to PSInsp as Chief of stations investigation sectionPCInsp to PSupt as Chief of investigation sections in provincial,

district police offices, CIDG provincial officesPSupt to PCSupt as chief of Regional and National IDM Offices

3. Program of Instructions (POIs) per curriculum must be developed, alongwith Trainers Manuals, corresponding Lecture Materials and AssessmentTools.

4. Consultation Team, thru the TWGs, to design POI of various specializedcourses, as part of the temporal leveling-off study program, in order to fill-in

the gaps based on needs assessment and to also form part of the eligibilityaccreditation.

5. Training of pre-identified Trainers must be set-up, with a Feedback AnalysisTool.

6. Review and Final Revision of all pertinent training materials, in particular,and the whole training system in general.

7. Training Facilities, Equipment and Resources must be put in place.

8. Regionalize the implementation of the existing CIC in a progressive manneruntil it reaches down to the provincial, district and chartered city levels;

while the rest of the courses in the training system will be centralized at theSIDD of the PNP NHQ.


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Assessment / Review Metrics

1. Feedback Analysis Tool

2. Assessment Tools for Learning Outcomes particular to each course3. Periodic Performance Evaluation (competency based)4. Periodic Management Evaluation (competency based)5. Standardization of Eligibility and Accreditation Process for Occupying a

Position and for Promotion purposes (competency and performance based)6. Crime Resolution Efficiency (with conviction rate as index)7. Public Opinion Surveys8. Institutional Recognition (the training system has been institutionalized)

Budget Allocation

Based on the foregoing and the current fees for training program, the PNP wouldneed to invest at least P7,000 per capita cost per trainee, and considering thefollowing cost implications:

1. Working Fees for the Consultation Team2. Working Fees for the Technical Working Groups3. Allocation for the Training of Trainers4. All logistical concerns down to the implementation stage until

institutionalization

VIII. CONCLUSION

The apparent crime situation is not mainly due to the increase in criminality and/orcriminal incidents, rather due to the staggering number of unsolved cases. The maincrisis looming behind this low conviction rate in the Philippines is essentially thegeneral lack of competency in investigation and detective management among thecurrent PNP police force. This has a profound impact on the operations andmanagement of the PNP structure down to public perception. Hence, this must beaddressed in the most appropriate and systematic way, considering relevant issuessurrounding the crisis, wherein the criteria for recommendation must be based.

Criminal investigation and management of cases are significant integral part of thecrime procedure as well as of the whole Criminal Justice System in the Philippines.Akin to this is the recent Presidential mandate that crime resolution should no longerbe measured by the mere identification of suspect and filing of cases in courts but upto the conviction of the suspect/s involved. These premises entail a thorough reviewof why the conviction rate remains low with relevance to the conduct of resolvingcrimes.

Crime resolution, being one of the two main functions of the PNP, should now begiven full attention, reviewing and analyzing the basic requirements for its efficientand effective implementation. This points to the fact that apparently, 74.8% of thePNP personnel designated as investigators vis--vis their investigative positions do

not have comprehensive training in investigation and detective management, almostacross the ranks from PNCOs to PCOs.


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To directly avert this situation and to come up with a sustainable and progressiveplan, it is highly recommended to develop a comprehensive, ladderized andhierarchical training system that must be institutionalized in order to provide long-

lasting solutions even to the issues surrounding the main crisis.

This recommendation is expected to progressively and significantly improve crimeresolution, thereby raising the conviction rate. It will also provide a career path forinvestigators and detectives, as their competency levels are improved. Further, as itaddresses one of the main functions of the PNP, it becomes an utterly relevantundertaking based on the ITP. Moreover, it will build up a public image of a trulycredible, reliable, efficient and functional PNP.


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IX. REFERENCES

PCI Manuel L Santos, Jr., Oct 2007, Assessment of PNP Detective School inCamp Crame: Its Implication for PNP Job Performance.

Chief, PNP ApprovedMemorandum, 6 Aug 2010, Conversion of CriminalInvestigation and Detective Development Course (CIDDC) to CriminalInvestigation Course (CIC) and its Conduct at the Police Regional Offices.

Chief, PNP ApprovedMemorandum, 5 Nov 2010, Investigative TrainingPrograms for the Line Officers of the PNP.

European Union Philippines Justice Support (EPJUST) Program Review, 10Dec 2010, Final Report on Extra-Legal Killings (ELK) and Enforced

Disappearances (ED).

NAPOLCOM Resolution 97-032, 24 Feb 1997, Enhancing the InvestigativeFunction of the PNP through the Implementation of an Investigation andDetectives Management Program.

PNP-NHQ Letter of Instruction 01/11, 17 Jan 2011, Criminal InvestigationCourse (CIC)

PNP Detective School, 1996, Criminal Investigation and Detective DevelopmentCourse (CIDDC) Program of Instruction (POI).

PNP-NHQ Memorandum Circular No. 2005-009, 7 Jul 2005, "Institutionalizing aSystem of. Investigators and Detective Eligibility Accreditation (IDEA) throughthe Creation of an Investigative and Detective Eligibility Accreditation Board".

PSSupt Napoleon R Estilles, et. al., Oct 2002, Doctrine on InstitutionalizingStandards for the Selection and Accreditation of PNP Investigators.

PSupt Asdali Abah, et. al., Jan 2004, Doctrine on the Assignment of PoliceInvestigators at Station Level.

Philippine Public Safety College, Public Safety Basic Recruit Course (PSBRC)

Curricula

PIO, PNP-NHQs Press Release, 17 Jan 2011, PNP Opens More TrainingCourses for COPs.

PNP-PMO, 2010, PowerPoint Presentation on the Gains of the IntegratedTransformation Program (ITP) of the PNP.

SIDD-DIDM, PNP, 2010, Criminal Investigation Course (CIC) Program ofInstruction (POI).

UNDP PHI 02/007: Judicial Reform Program Access to Justice by the

Disadvantaged, Jun 2005, Transforming the PNP into a More Capable,Effective and Credible Police Force(Phase 2) Final Report.

Final Policy Paper

Documents