LAW

ENFORCEMENT
ORGANIZATION
AND
ADMINISTRATION
GRAY, MAY
ANGELA L. 0
NICOSAT
CCJE Department

CHAPTER II
THEORIES AND PRINCIPLES OF POLICE SERVICE

Learning Activities

Lesson 1. THEORIES AND PRINCIPLES OF POLICE SERVICE

I. THE PNP

A. PNP Mandate
Republic Act 6975 entitled, An Act Establishing the Philippine National Police Un
der a Reorganized Department of the Interior and Local Government and Other Purpos
es as amended by RA 8551 Philippine National Police Reform and Reorganization Act o
f 1998 and further amended by RA 9708.

B. PNP Vision
Imploring the aid of the Almighty, by 2030, we shall be a highly capable, effective
and credible police service working in partnership with a responsive community towards
the attainment of a safer place to live, work and do business.

C. PNP Mission
The PNP shall enforce the law, prevent and contro crimes, maintain peace and o
rder, and ensure publi safety and internal security with the active support c the communi
ty

D. PNP Philosophy
Service, Honor and Justice

E. PNP Core Values

 Maka-Diyos (Pro-God)
 Makabayan (Pro-Country)
 Makatao (Pro-People)
 Makakalikasan (Pro-Environment)

F. PNP Functions

Name of Instructor: MAY ANGELA L. GRAY RCrim.

Year Level: BS CRIM 2 Subject: LEA 1
NICOSAT
CCJE Department

1. Enforce all laws and ordinances relative to the protection of lives and properties.
2. Maintain peace and order and take all necessar steps to ensure public safety.
3. Investigate and prevent crimes, effect the arres of criminal offenders, bring offenders
to justic and assist in their prosecution.
4. Exercise the general powers to make arrest, search and seizure in accordance with t
he Constitution and pertinent laws.
5. Detain an arrested person for a period not beyonc what is prescribed by law, informin
g the person so detained of all his rights under the Constitution.
6. Issue licenses for the possession of firearms and explosives in accordance with the la
w.
7. Supervise and control the training and operations of security agencies and issue licen
ses to operate security agencies, to security guards and to private detectives, for the pr
actice of their professions.
8. Perform such other duties and exercise all other functions as may be provided by law
(R.A. 6975 Section 24).

G. Home Rule and Continental Theory

Basic Theories About Police Service

1. Home Rule Theory. Police are considered servants of the community. The effectiven
ess of the policemen in their functions depends on the expressed wishes and needs of t
he people. In this theory, policemen are civilian employees whose primary duty is the pr
eservation of the public peace and security. This is applied in countries with decentraliz
ed government structure.

2. Continental Theory. Policemen are considered servants of a higher authority. Ordin

ary people have little or no share in all of the police duties nor have any direct connectio
n or cooperation with police functions. This theory is applied in countries that have centr
alized government.

H. Concepts of Police Service

1. Old Concept. Police service is looked upon as a repressive and suppressive machin
ery of the government. The yardstick of police efficiency is the increase number of arres
t. Thus, the job of the police is to arrest and put people in jail rather than prevent people

Name of Instructor: MAY ANGELA L. GRAY RCrim.

Year Level: BS CRIM 2 Subject: LEA 1
NICOSAT
CCJE Department

from committing crime or keep them out of jail. Punishment is the sole instrument of cri
me control. Punishment is the sole instrument of crime control.

2. Modern Concept. Police service is an instrument of crime prevention. The modern p

hilosophy of police service is not only focused on criminal apprehensions but also social
services. The objective of the police is to promote the welfare of the individual citizen as
well as the society in general. The yardstick of the police efficiency is the absence of cri
me or low crime rate.

I.Four Primal Conditions of the PNP Organization

1. Authority. This is the supreme source of government for any particular organization.
It is the right to direct, command and control the behavior of the employees by the senio
r officer by virtue of rank and position.

2. Mutual Cooperation / Coordination / Consultation. An organization exists because

it serves a purpose. This purpose is viewed by society as beneficial to it. This becomes t
he social legitimacy for the organization to perform its functions in the society. It constitu
tes recognition by an agreement with the public on the rationality of its existence. PNP s
erves the community and which in turn demands mutual cooperation, coordination and c
onsultation with the community in order to have an integrated holistic approach to achie
ve crime prevention and peace and order. and

3. Doctrine. It is the organization's objectives. I organizational also provides the very so

urce of various actions which are performed to assure coordination. Hence, policies, pro
cedures, rules and regulations of the organization are based on the statement of doctrin
es.

Primary PNP Doctrines

a. Fundamental Doctrine. Contains rules, policies, procedures or guidelines pertaining
to the operational and administrative functions of a particular PNP unit. It covers the ope
rational, administrative, and technical areas that are functionally relevant to the PNP uni
t concerned.
b. Ethical Doctrine. The fundamental principles governing the rules of conduct, attitude,
behavior, and ethical norms of the PNP.

Name of Instructor: MAY ANGELA L. GRAY RCrim.

Year Level: BS CRIM 2 Subject: LEA 1
NICOSAT
CCJE Department

4. Discipline. In any organization, discipline is necessary to promote coordination. Und

erstood as comprising behavioral regulations, it is imposed either by command or self-re
straint to insure to supportive behavior from people composing the organization.

J. Principles of Police Organization

1. Principle of Unity of Objectives

An organizational structure is effective if it enables individuals to contribute to the
organizations/unit objectives.

2. Principle of Organizational Efficiency

An Organization structure is effective if it is structured to aid the accomplishment
of the organization's objectives with a minimum, of unsought consequences or costs.

3. The Scalar Principle

It prescribes the vertical hierarchy of organizations. It defines an unbroken chain
or scale of units from top to bottom describing explicitly the flow of authority.

This principle demands the following conditions to achieve effective coordination:

a. Unity of Command. It defines a hierarchical system in which a subordinate is accou
ntable to one and only one immediate superior. This is indispensable to achieve effectiv
e coordination and cooperation. Any violation to this principle undermines authority, jeop
ardizes discipline, disturbs order and threatens stability in the organization.

b. Span of Control. This relates to the number of subordinates a superior can effectivel
y supervise. There is no exact mathematical ratio in superior-subordinate relationship. A
satisfactory span of control is determined by the four (4) factors combined:
b.1. managerial ability of superior;
b.2. effectiveness of organizational communication system;
b.3. effectiveness of management control exercised over operations; and
b.4. organizational Philosophy on versus decentralization of centralization
authority and function.

c. Delegation of Authority. Scalar process refers to the growth of the chain of comman
d resulting in the creation of additional levels in the organizational structure with the corr
esponding position and officer to assume the delegated authority. Span of control neces
sitates delegation of authority.
4

Name of Instructor: MAY ANGELA L. GRAY RCrim.

Year Level: BS CRIM 2 Subject: LEA 1
NICOSAT
CCJE Department

4. Functional Principle. Prescribes the horizontal growth of the organization which app
lies to of the functional both line and staff functions in organization. The dynamic founda
tion process is for the division of labor. It simply means the breaking up of work units to
achieve specialization. As the organization grows, the work must be divided and distribu
ted among the concerned office and to be assigned to some personnel who has knowle
dge of the same or to one who has the eagerness to learn the work in I order that the sa
me would not be so inclusive to an extent that it could hardly be performed. Such divisio
n must be defined to identify the clear areas of specialization. The division of work will s
upport the operational performance of the organization.

5. Line and Staff Principle. A line organization refers to the functions that carry the dire
ct accomplishment of its objectives. The staff on the other hand, refers to organization's
functions in an advisory, facilitative and supportive capacity to the line functions. Anothe
r viewpoint contends that those having relatively unlimited authority over those whom or
ders are given are considered line officials while those having authority restricted their f
unctional area are called staff officials.

6. Directorial Staff Principles. Prescribes the directorial authority of the directorate in t

he national and regional levels and other equivalent units to which the functions of the li
ne and staff programs are aligned.

7. Principle of Balance. In every structure there is a need for equilibrium or equality. T

he application of principles or techniques must be balance to ensure the overall effectiv
eness of the structure in meeting the organization's objectives.

8. Principle of Delegation. Authority delegated to all individual managers should be cle

ar, adequate and unequivocal to ensure their ability to accomplish the expected results.

9. Principle of Absoluteness of Responsibility The responsibility of the subordinates

to their
superiors for performance is absolute, and the superiors are accountable for their subor
dinates' activities.

10. Principle of Parity of Authority and Responsibility. The responsibility for actions
cannot be greater than that expressly or impliedly delegated authority nor should it be le
ss.

Name of Instructor: MAY ANGELA L. GRAY RCrim.

Year Level: BS CRIM 2 Subject: LEA 1
NICOSAT
CCJE Department

11. Authority-Level Principle. Maintenance of

intended delegations requires that decisions within the authority of individual commande
r should be made by them and not to be referred upward in the organizational structure.

12. Principle of Flexibility. The more provisions are made for building flexibility in an or
ganizational structure, the more adequately an organization's structure can fulfill its purp
ose. Devices and techniques for anticipating and reacting to change must be built into e
very structure. Every unit moves towards its goal in a changing environment, both exter
nal and internal. The unit that develops inflexibilities, whether these are resistance to ch
ange, too-complicated procedures, or too-firm department lines, is risking inability to me
et the challenges of behavior, technical, biological, political and social change.

13. Principle of Leadership Facilitation. The organization's structure and delegated a

uthority enable its leaders/commanders to design and maintain environment for perform
ance, an thus, it will help its leaders and organization to accomplish its purpose.

14. Completed Staff Work Principle. Actions of staff officers must be completed staff a
ctions. A completed staff action includes a thorough analysis of a problem, consideratio
n of all feasible courses of action, and recommended solution in which the commander
can approve or disapprove. This procedure usually gives more work for staff officers, bu
t provides the commander more freedom to think and decide.

It is the hierarchal relationship of positions through which the primary functions of the or
ganization are performed. It is a line or chain of superior from top to bottom; the route ta
ken for all communications which may either start from or go to thru top authority in the
chain. A unit director exercises his authority and responsibility through a "command". It
consists of different levels as follows:

15. Chain of Command.

a. Top Echelon. The top most level in the chain where the overall responsibility and aut
hority over subordinate commands and units is placed.

b. Middle Echelon. The next lower echelon constitutes subordinate commands/units ap

portioned by the commander in order to accomplish his tasks. Each of these subordinat
e commanders is responsible to the common superior for the accomplishment of his ass
igned task. The Regional Commands and National Support Units and Provincial/ City C
6

Name of Instructor: MAY ANGELA L. GRAY RCrim.

Year Level: BS CRIM 2 Subject: LEA 1
NICOSAT
CCJE Department

ommands/NCR Districts belong to the middle echelon. However, for purposes of clarity,
this echelon is further categorized as follows:

* Police Regional Offices/NSU's Top middle echelon

*Provincial/City Police Offices/NCR District Offices intermediary middle echelon

*Municipal Police Offices/Numbered Police Stations lower middle echelon

c. Lower Echelon. The lower echelon is comprised of the subordinate units further app
ortioned by subordinate commanders, such as the municipal and city police stations. A
commander apportions his tasks to his subordinates to an extent dictated primarily by th
e nature of the task, availability of material and human resources.

16. Command Authority. This is the responsibility of the commander to plan, organize,
direct, coordinate, and control PNP forces or units in order to accomplish an assigned m
ission or task. Included on such responsibility are matters of health, welfare, moral, train
ing and discipline of subordinates.

17. Command Responsibility. The commander is responsible for all that his subordina
tes or unit does or fails to do. This responsibility can never be delegated otherwise it wo
uld constitute an abdication of his role as a commander. He alone answers for the succ
ess or failure of his command in all circumstances.

18. Staff Authority. It is the commander that delegates authority to a particular staff offi
cer to take action on matters within the bounds of command policies. The staff officer is
sue orders in the name of the commander who assumes responsibility for such orders.
The authority delegated among the staff officers varies with the level and mission of the
command, the urgency of operations and the relationship of the staff officer's functional
area.

19. Staff Responsibility. Staff officers are those tasked with a functional areas of intere
st. Each is responsible for the accomplishment of all staff actions within his area of inter
est. However, such responsibility does not carry, command authority over other staff offi
cer or other elements of the command.

II. COMMON TERMINOLOGIES IN POLICE LAW ENFORCEMENT

7

Name of Instructor: MAY ANGELA L. GRAY RCrim.

Year Level: BS CRIM 2 Subject: LEA 1
NICOSAT
CCJE Department

Accountability. This refers to the obligation to be onsible and oversee the authority del
egated and tasks assigned to subordinates

Authority. It is the right to decide and command.

Attrition from the Service. It is the retirement or separation in the police service of PN
P Uniformed Personnel pursuant to any of the means mentioned in Sections 24 to 29 of
RA No 8551 and other means as provided in MC No. 14 Series of 1998.

Average Monthly Crime Rate. Crime incidents divided into the number of months in a
year.

Base Pay. It is the fixed amount received by the uniformed PNP personnel on a monthl
y basis.

Collateral Function. Function performed by the PNP in collaboration with other law enf
orcement agencies and police volunteers. Command. The authority vested to a senior o
r superior police officer by virtue of his rank or assignment over his subordinates.

Commissioned Officer (PCO). A police officer with a rank of police lieutenant and high
er.

Competency. Refers to an individual's knowledge, skills and attitudes (KSA) that lead t
o superior and maximum performance.

Compulsory Retirement. It is the retirement in the service upon attainment of age fifty-
six.

Crime Clearance Efficiency (CCE). The percentage of cleared cases out of the total n
umber of crime incidents handled by the police for a given period of time.

Crime Cleared. A crime/case is considered cleared when:

a. at least one of the offenders has been identified;
b. there is sufficient evidence to charge the offender; and
c. the offender has been charged in court.

Name of Instructor: MAY ANGELA L. GRAY RCrim.

Year Level: BS CRIM 2 Subject: LEA 1
NICOSAT
CCJE Department

Crime Prevention. an act that aims to prevent the commission of crimes by adopting m
easures that leads to early detection, deterrence or denial of a crime.

Crime Rate. The number of crime incidents in a given period of time for every 100,000 i
nhabitants of an area.

Crime Reporting. It is the act of reporting a crime committed by a victim or concerned c

itizens to the police station and other similar law enforcement agencies/ institutions.

Crime Solution. The act of investigating the crime leading to the prosecution of perpetr
ators. Crime Solution Efficiency (CSE). The percentage of solved cases out of the total
number of he incidents handled by the police for a given period of time.

Crime Solved. A crime is considered "solved" when:

a. the offender/perpetrator has been identified;
b. the offender/perpetrator has been charged based on evidence'
c. the offender/ perpetrator has been taken into custody; and
d. the offender/perpetrator has been charged before the prosecutor's office or court of a
ppropriate jurisdiction.
e. elements beyond police control prevent the arrest of the offender, as when the victim
refuses to prosecute or the death of the offender; and
f. arrest of one offender can solve several crimes or offenders maybe arrested in the pro
cess of solving crime.

Crime Volume. The number of crime incidents committed in a given area over a period
of time which include index and non-index crimes.

Delegated Authority. It is the action by which the Chief, PNP assigns part of his authori
ty to his Deputies, Directorial Staff, Regional Directors and NSU Directors.

Departmental Rules/Policies. The rules established by the police department directors

/administrators to control the conduct of the members of the police force.

Dismissal from the Service. It is the separation of government as a result of his/her ca

se that includes cancellation of eligibility, forfeiture of retirement benefits, and disqualific
ation in the re-employment in the service.

Name of Instructor: MAY ANGELA L. GRAY RCrim.

Year Level: BS CRIM 2 Subject: LEA 1
NICOSAT
CCJE Department

Dropped from Rolls. It is a non-disciplinary action against erring personnel where he/s
he is no longer receiving salary and the issued firearms will be taken by the PNP.

Duty Manual. A book of instruction that describes the procedures and defines the dutie
s of officers assigned to a specified post or position.

Flying Pay. It is given to all PNP pilots and crew of aircrafts whose duty requires regula
r and frequent aerial flights, provided that they maintain an average of four (4) hours aer
ial flight per month. The rate of flying pay is placed at fifty percent (50%) of their authoriz
ed base pay.

Fundamental Doctrine. It states the basic principles, policies and bases in the planning,
organization and management of the PNP in support of the PNP vision, mission and str
ategic action plan towards the attainment of national objectives.

Hazard Pay. It is given to the PNP uniformed personnel as basic occupational hazard p
ay considering that law enforcement is a hazardous occupation.

Heroic Deed/Act. The act of conspicuous courage and gallantry at the risk of his/her lif
e above and beyond the call of duty.

Index Crimes. These are crimes which are serious in nature and which occur with suffic
ient frequency and regularity such that they serve as an index to the crime situation. Th
ese are the crimes of murder, homicide, physical injuries, carnapping, cattle rustling, rob
bery, theft and rape.

Investigation. It is the collection of facts to identify the suspect, locate the suspect, and
provide evidence of his guilt.

Killed in Police Operation (KIPO). It refers to a PNP personnel who is killed in the actu
al performance of duty or by reason or on account of previous discharge of function.

Leave of Absence. It is a right granted to officials and employees not to report for work
with or without pay as may be provided by law and as the rules prescribed in the Omnib
us Rule on Leave.

10

Name of Instructor: MAY ANGELA L. GRAY RCrim.

Year Level: BS CRIM 2 Subject: LEA 1
NICOSAT
CCJE Department

Longevity Pay. It is an incentive given to PNP Uniformed Personnel amounting to ten p

ercent of their basic monthly salaries for every five (5) years of service.

Manage. To direct or conduct the affairs or interests of various police units; to control th
e direction, operation, and business of a police unit or the police organization as a whol
e.

Morale and Esprit-de-Corps. This refers to the mentalstate of the troop/group characte
rized by confidence, zeal and pride in their organization. In peace, it is measured by thei
r contentment and well-being; in war, it is measured by their will and courage to execute
the arduous tasks assigned to them. Individual moral and sense of

Esprit-de-Corps denotes optimism and confidence on good leadership, thorough and c

omprehensive training and pride of the individual in himself and his unit.

Non-Commissioned Officer (PNCO). A police officer with a rank of Police Executive M

aster Sergeant and lower.

Non-Index Crimes. These are violations of special laws such as illegal logging or local
ordinances.

Off-Duty. The nature of which the police office is free from specific routine duty.

On-Duty. It is the period when an officer is actively engaged in the performance of his d
uty; also called Active Duty.

Operational Manual. It contains the principles and rules governing the planning, organi
zation, direction, and employment and deployment of PNP forces in the accomplishmen
t of basic security operational mission in crime prevention and solution, law enforcement,
public safety and security.

Optional Retirement. It is the retirement upon accumulation of at least twenty years of

satisfactory active service at his/her own request and with the approval of NAPOLCOM.

Organize. To form a police unit for the purpose of accomplishing a common objective; t
o arrange systematically a group of police unit/s.

11

Name of Instructor: MAY ANGELA L. GRAY RCrim.

Year Level: BS CRIM 2 Subject: LEA 1
NICOSAT
CCJE Department

Organizing. The act of systematically arranging police units in hierarchical order to perf
orm specific functions thus achieve desired objectives.

PNP Doctrines. A body of officially sanctioned beliefs and fundamental principles that g
uides the organization in support of national objectives.

PNP Ethical Doctrine. It defines the fundamental principles governing the rules of cond
uct, attitude, behavior and ethical norms of the PNP.

Police Accountability. It refers to the legal responsibility of the police officers to face a
ny consequence that may arise while exercising their powers, duties and functions.

Police Attaché. Senior Police Commissioned Officer with duties and function of police
officer and a diplomat at the same time. He may also be called as Police Liaison Officer,
Police Liaison Attaché or as the case maybe depending on the accreditation of the host
country.

Police Management. The art or manner of administering, controlling, or handling all the
various aspects of the police organization; the skillful use of means to accomplish the ta
sk, purpose or objective of a police unit or organization.

Police Organizational Chart. It is the framework of the organization showing the hierar
chy of offices and positions to effectively manage a police force.

Police Politics. The study of public administration or affairs of the government in relatio
n to police matters; maneuvering for power within the police organization.

Police Power. The power of the government to impose what is considered reasonable r
estriction on the liberties of its citizens for the maintenance of public order and safety

Position of Collateral Responsibility. A position that assumes a primary responsibility

to supervise and orchestrate the activities of the command/unit or office supportive/vital
to the accomplishment of the mission/ function of the officer holding the position of majo
r responsibility.

Position of Front-Line Responsibility. A position that assumes the primary field com
mand responsibility.
12

Name of Instructor: MAY ANGELA L. GRAY RCrim.

Year Level: BS CRIM 2 Subject: LEA 1
NICOSAT
CCJE Department

Position of Hands-on Responsibility. A position that has the immediate hands-on res
ponsibility in the machine/equipment operation, clerks, resources operation or plan exec
ution.

Position of Major Responsibility. A position that has major decision-making prerogati

ve and ultimate assumption of responsibility or a key position of leadership.

Posthumous Promotion. A special promotion given for acts of heroism exhibited in the
face of an armed enemy or in the conduct of rescue/disaster operations resulting in the l
oss of life.

Posthumously Retired Personnel. It refers to a PNP personnel with at least 20 years

of active service who died in line of duty

Posthumously Separated Personnel. It refers to a PNP personnel with at least 20 yea

rs of active service who died in line of duty.

Promotion. It is the conferment to the next higher rank with an increase in duties and re
sponsibilities as authorized by law, usually accompanied by the corresponding increase
in salary.

Regular Promotion. It refers to the promotion to the next higher rank granted to any uni
formed personnel who passed the minimum qualification standard.

Sea Duty Pay. It is given to a PNP Maritime Group personnel amounting to 25% of the
base pay given at the end of the month or each end of the quarter.

Second Level Promotion. Promotion from the rank of Patrolman/Patrolwoman to Polic

e Colonel provided that he/she meets the approved qualification standards (QS) require
d for every rank

Special Promotion. It refers to the promotion to the next higher rank granted to any uni
formed personnel who has exhibited acts of conspicuous courage and gallantry at the ri
sk of his/her life above and beyond the call of duty.

13

Name of Instructor: MAY ANGELA L. GRAY RCrim.

Year Level: BS CRIM 2 Subject: LEA 1
NICOSAT
CCJE Department

Specialist Pay. It is given to a deserving PNP non-officer personnel who is not assigne
d in critical areas and has demonstrated efficiency and effectiveness through skills, aptit
ude training, experiences and knowledge of specific police duties and specialties.

Spot Promotion. It is a special promotion conferred by the President of the Republic of

the Philippines which shall be exempted from the validation of NAPOLCOM.

Subordinate. It refers to an officer belonging to the lower or inferior rank.

Superior Officer. An officer having supervisory responsibilities (either temporary or per

manent) over an officer of lower rank.

Third Level Promotion. Promotion from the rank of Police Colonel (PCOL) to Police G
eneral (PGEN) provided he/she is within the Promotional Zone of Consideration and de
signated to the approved TO position.

Time-In-Grade. It is the minimum period required before a third level PCO becomes eli
gible to be promoted to the next rank.

Total Permanent Physical Disability (TPPD). It is a permanent and total disability as a

result of injuries suffered or sickness contracted in the performance of duty wherein a m
ember is unfit or unable to further perform the duties of his position.

Wounded in Police Operation (WIPO). It is a PNP personnel who is wounded in the a

ctual performance of duty or by reason or on account of previous discharge of function.

14

Name of Instructor: MAY ANGELA L. GRAY RCrim.

Year Level: BS CRIM 2 Subject: LEA 1
NICOSAT
CCJE Department

15

Name of Instructor: MAY ANGELA L. GRAY RCrim.

Year Level: BS CRIM 2 Subject: LEA 1
NICOSAT COLLEGES,
INC.