===============================================================

__ooo0ooo__

CHAPTER 1
Introduction
________________________________________________

Brief History of Policing

a. Ancient China - law enforcement was carried out by prefect.

Prefects were government officials appointed by local magistrates
who reported to higher authorities such as the governors who in
turn was appointed by head of state usually the emperor of the
dynasty.

b. Ancient Greece - publicly owned slaves were used by magistrates

as police. In Athens, a group of 300 Scythian slaves (rod-bearers)
was used to guard public meetings to keep order and for crowd
control and also assisted with dealing with criminal, handling
prisoners and making arrests.

c. Roman Empire - the army rather than a dedicated police

organization provided security. Local watchmen were hired by cities
to provide some extra security. Magistrates such as procurators,
fiscals and quaestors investigated crime. Under the reign of
Augustus, 14 wards were created, the wards were protected by
seven squads of 1000 men called vigiles who acted as firemen and
night watchmen. Their duties included apprehending thieves and
robbers and capturing runaway slaves. The vigiles were supported
by the urban cohorts who acted as a heavy-duty riot force and
praetorian guard if necessary.
➢ Praetorian Guard - bodyguards used by roman emperors.
➢ Urban Cohorts - were created by Augustus to counter balance
the enormous power of the praetorian guard in the city of
Rome and serve as the police force.
➢ Vigiles - (watchmen of the city) - were the firefighters and
police of ancient Rome.
➢ Ward - a subdivision of a municipality.

d. Anglo-Saxon Period of Polcing (600 to 1006 AD

1Page
2020 Edition ©
===============================================================
With the fall of Rome about 300 AD. And the over-running of
Europe by the Germanic hordes from the east, the Anglo-Saxon tribes
of Europe migrated, first to Normandy and then to the island of Britain.
These tribes’ conic as refuges from oppression and their government
reflected this fact, they settled in small tribal areas which were called
tuns, or as we know them today, towns. The Anglo-Saxon system of
maintaining public order since the Norman conquest was a private
system of tithing, led by a constable to enforce the law.
➢ FRANKPLEDGE System. Policing was carried out under a
system called mutual pledge, whereby every male over 12
years old join nine (9) of his neighbors to form a
TYTHINGMEN –a group of men whose duty was to
apprehend any person who offends another and deliver that
offender for trial. Anyone who failed to join and perform this
obligatory duty was severely fined. Thus, policing
responsibility lies on the hands of the citizens.
➢ TUN Policing – a system of policing whereby all male
residents were required to guard the town (tun) to preserve
peace and protect the lives and properties of the people.
➢ Hue and Cry - a village law started in Britain which provides
for methods of apprehending a criminal by an act of the
complainant to shout to call all male residents to assemble
and arrest the suspect. This becomes the basis of what we
call today a citizen's arrest.
➢ Royal Judge System - the royal judge conducted
investigation of crimes and gives punishment fitted to the
crime committed. It also started the practice of identification
of criminals.
➢ Trial by Ordeal - an ancient method of determining the guilt
or innocence of a suspect by subject the suspect to a test or a
trial. Using this procedure, it should be said that the citizen
police were able to secure 100% convictions.

Constable - is a person holding a particular office most

commonly in law enforcement. The office of constable can vary
significantly in different jurisdiction.

e. The Norman Period of Policing (1066 to 1225 AD)

2Page
2020 Edition ©
===============================================================
This period saw a revolution in law enforcement ideas and
methods. When Norman William (William the conqueror), King of
France invaded and conquered England, a military regime of conqueror
and dictator began. He changed the concept of crime being committed
against the state.
➢ SHIRE-REEVE System. When King William Norman became the
ruler of England, he divided his kingdom into 55 military districts
known as the Shire-Reeve. SHIRE means a district while REEVE
means the ruler who made laws, pass judgment and impose
punishment. He was assisted by a group of constables, the
forerunner of the constabulary. The term Shire-Reeve
eventually became Sheriff, the title of the chief of constables or
police officers in a certain town.
➢ TRAVELLING JUDGE was held responsible in deciding cases
that were taken from Reeve due to some abuses. He travels
from one district to another to try and decide cases.
➢ LEGIS HENRIE. This law was enacted during the time of King
Henry I, which imposed the following features:
• Law violations were classified as offenses against the King
and against ordinary people
• Policemen became public officers
• The police and the citizens were given the broad power to
arrest.
• Grand Jury was created to inquire on the facts of the law.
➢ KEEPERS OF THE PEACE – in 1195, King Richard of England
appointed Knights to keep the King’s peace by standing as
guards on bridges and gates while checking the people entering
and leaving the cities and towns.
➢ MAGNA CARTA (Great Charter) was sealed by King John of
England on June 15, 1215. This became a law upon the demand
of the Knights of the Round Table. The knights forced King John
to sign the document which declared the following:
• No freemen shall be taken or imprisoned, disposed,
outlawed, or bowed except by legal judgment of his peers.
• No person should be tried for murder unless there is proof
of the body of the victim.
• There should be national and local government as well as
the national and local legislation.

3Page
2020 Edition ©
===============================================================

f. Westminster Period (1285 to 1500 AD)

➢ STATUTE OF WINCHESTER (1285) was enacted for law and

order. This law introduced the system of WATCH AND WARD.
➢ STATUTE OF 1295 was enacted, which began the closing of the
gates of London during sunset. This started the observation of
curfew hours.
➢ JUSTICE OF THE PEACE was a position given to a respected
citizen, who has the power to arrest, pursue and imprison the
offenders.
➢ STAR CHAMBER COURT was established as special court that
tried offenders against the state.
➢ THE MERCHANT POLICE (1500). It. was at about this time
that merchants began to employ persons to protect their
property Banks began to employ guards. Night watchmen were
hired to watch business establishments and private detective
were employed to locate and identify stolen property.
➢ THE PAROCHIAL POLICE. The people of the cities were divided
into religious areas or parishes and they would bond together
and employ their own police to protect them and their property.
In one parish in London there were more than 700 such private
policemen.
➢ MILITARY POLICE. In 1655 England and Wales under Oliver
Cromwell, were divided into 12 military districts as “Provost
Marshall” and to act as judges. The Military personnel under the
Provost Marshall had police control over both military personnel
and the civilian population.

g. The Habeas Corpus Act (1679)

This act was designed to combat the indiscriminate jailing and

holding of prison without trial, the act provide that the police and
prisoners promptly produce a jailed prisoner when demanded by the
courts. The prisoner, himself could demand to know the cause of his
imprisonment and prisoners could only be imprisoned within the
borders of the country in which the offense, for which he was jailed,
occurred.

In 1688 the “Bill of Rights” was passed and became law. This
outlawed the “Third Degree” which had been permitted, legally since

4Page
2020 Edition ©
===============================================================

1497. The “Bill of Rights” prohibited excessive bail, excessive fines and
provide that “No cruel or unusual punishment may be inflicted”. The
“Bill of Rights” also provides the “Doctrine of Protection against
SelfIncrimination”.

h. Modern Period (17th to 18th Century)

➢ NIGHT WATCHMEN AND BELLMEN – in 1663, King Charles II

appointed and employed male citizen to be on duty at night.
They were considered as the first security guard.
➢ BOW STREET RUNNERS OR THE THIEF CATCHER (1748) –
established by Henry Fielding. They are reformed thief. He later
formed the BOW STREET HORSE PATROL whose duty was to
patrol the main roads thus secure the travelers from
highwaymen or highway bandits.

i. Beginning of Modern Policing (1800 to 1850)

The British statesman SIR ROBERT PEEL in 1829 established

the LONDON METROPOLITAN POLICE, which became the world’s
first modern organized police force. It was later called SCOTLAND
YARD. The development of the British police system is especially
significant because the pattern that emerged not only became a model
for the American police system but also had great influence on the
style of policing in almost all industrial societies. Peel earned the title –
THE FATHER OF MODERN POLICING SYSTEM.

Peel’s Concept of Policing

• The police should be organized along military lines
• The police should be placed under screening and training.
• The police should be hired on a probationary basis.
• The police should be deployed by time and by area.
• Police headquarters should be accessible to the people.
• Police-Records keeping is essential.

Principles of Law enforcement enunciated by Sir Robert Peel

• Prevention of Crime is the basic mission of the police.
• Police must have the full respect of the citizenry.
• A citizen’s respect for law develops his respect for the police.

5Page
2020 Edition ©
===============================================================

• Cooperation of the public decreases as the use of force

increases.
• Police must render impartial enforcement of the law.
• Physical force is sued only as a last resort.
• The police are the public and the public are the police.
• The police represent the law.
• The absence of crime and disorder is the test of police efficiency.

j. The French Policing System

During the 17th century in France, King Louis XIV maintained a

small central police organization consisting of some 40 inspectors who,
with the help of numerous paid informants, supplied the government
with details about the conduct of private individuals.

In Paris, the position OFFICERS DE PAIX was formed in 1791.

This was the origin of the term Peace Officers. The French were the
first to establish uniformed police officers – they were called SERGENT
DE VILLE (servant of the city).

Other contributions of the French in the development of

policing system were:
• Conceiving street signs.
• Assigning house numbers.
• Installing street lighting.
• Creating emergency and rescue services.
• Use of police ambulances.
• Use of “warrant card” and ID signifying authority to arrest.

k. American Policing System

In the US - the first city police services were established in

Philadelphia in 1751, Boston 1838 and New York 1845.

➢ August Vollmer - first police chief of Berkeley California. He is

sometimes called the father of modern law enforcement in the
US.
• He was the first chief to require that police officers
attain college degrees.

6Page
2020 Edition ©
===============================================================

First police chief to create a motorized force placing

•
officers on motorcycles and cars so that they could
patrol broader areas with greater efficiency.
• He was also the first to use the lie detector in police
work.
➢ O.W. Wilson - studied under August Vollmer. Became Chief of
Police of the Fullerton police department. He also became
chief of police of the Wichita police department. He introduced
the following reforms and innovations:
• requires new policeman to have college education.
• use of police car for patrol, mobile radios and use of a
mobile crime laboratory.
• he believes that the use of a two-way radio allowed
better supervision of patrol officers.

Brief History of Philippine Policing

The institution of police in the Philippines formally started during

Spanish period. The establishment of the police was not entirely
intended for crime prevention nor peacekeeping. Rather, it was
created as an extension of the colonial military establishment.

Ancient Root
The forerunner of the contemporary police system was the
practice of barangay chieftain to select able-bodied young men to
protect their barangay during the night. Among the duties of those
selected were to protect the properties of the people in the barangay
and protect their crops and livestock from wild animal.

a. Spanish Regime (1700)

Carabineros de Seguridad Publica

Organized in 1712 for the purpose of the carrying the regulations
of the department of state; this was armed and considered as the
mounted police; years after, this kind of police organization discharged
the duties of a port, harbor and river police.

7Page
2020 Edition ©
===============================================================

Guardrilleros/Cuardillo
This was a body of rural police organized in each town and
established by the Royal Decree of 18 January 1836; this decree
provided that 5% of the able-bodied male inhabitants of each province
were to be enlisted in the police organization for three years.

Guardia Civil
This was created by Royal Decree issued by the Crown on 12
February 1852 to partially relieve the Spanish Peninsular troops of
their work in policing towns; it consisted of a body of Filipino
policemen organized originally in each of the provincial capitals of the
Central provinces of Luzon under the Alcalde Mayor.

b. American Period (1900)

1901: General Howard Taft

The Americans established the United States Philippine
Commission headed by General Howard Taft as first governor-general.
On January 9, 1901, the Metropolitan Police Force of Manila was
organized pursuant to Act No. 70 of the Taft Commission. This has
become the basis for the celebration of the anniversary of the Manila’s
Finest every January 9th.

Act no. 175 – entitled “An Act Providing for the Organization and
Government of an Insular Constabulary”, enacted on July 18, 1901.
Capt. Henry Allen – the first chief of the Philippine Constabulary in
1901.
Capt. George Curry – the first chief of police of the Manila Police
Department in 1901
Act no. 255 – the act that renamed the Insular Constabulary into
Philippine Constabulary, enacted on October 3, 1901
Executive Order 389 - Ordered that the Philippine Constabulary be
one of the four services of the Armed Forces of the Philippines,
enacted on December 23, 1940, Post-American period.
RA 4864 - Otherwise known as the Police Professionalization Act of
1966, enacted on September 8, 1966; created the Police Commission
(POLCOM) as a supervisory agency to oversee the training and
professionalization of the local police forces under the office of the
President; later POLCOM was renamed into National Police Commission
(NAPOLCOM)

8Page
2020 Edition ©
===============================================================

c. Martial Law (1970)

Proclamation 1081 – President Ferdinand E. Marcos declared Martial

Law.
PD 765 - Otherwise known as the Integration Act of 1975, enacted on
August 8, 1975; established the Integrated National Police (INP)
composed of the Philippine Constabulary (PC) as the nucleus and the
integrated local police forces as components, under the Ministry of
National Defense. It also transferred the NAPOLCOM from the office of
the President to the Ministry of National Defense.
Executive Order No. 1012 – transferred to the city and municipal
government the operational supervision and direction over all INP units
assigned within their locality; issued on March 22, 1985
Executive Order No 1040 – transferred the administrative control
and supervision of the INP from the Ministry of National Defense to the
National Police Commission. Issued on July 10, 1985

d. Post-martial Law (1900)

Republic Act No. 6975 - the Department of the Interior and Local
Government Act of 1990, enacted on December 13, 1990; reorganized
the DILG and established the Philippine National Police, Bureau of Fire
Protection, Bureau of Jail Management and Penology and the Philippine
Public Safety College
Republic Act No. 8551 –the Philippine National Police Reform and
Reorganization Act of 1998, enacted on February 25, 1998; this law
amended certain provisions of RA 6975.
Republic Act No. 9708 – law amending the provisions of RA 6975
and RA 8551 on the minimum education qualification for appointment
to the PNP and adjusting promotion system
Republic Act No. 11200 – New rank classification of PNP personnel.
Republic Act No. 11279 – an act transferring the Philippine National
Police Academy (PNPA) and the National Police Training Institute
(NPTI) from the Philippine Public Safety College (PPSC) to the
Philippine National Police (PNP)

Important Personalities in the Development of Philippine

Policing

9Page
2020 Edition ©
===============================================================

➢ BGen Rafael T Crame - the first Filipino Chief of the

Philippine Constabulary in 1917
➢ Col. Antonio Torres - the first Filipino Chief of Police of the
Manila Police Department on March 2, 1936
➢ Col. Lamberto Javalera - the first Chief of Police of the
Manila Police Department after the Philippine Independence
from the United States of America on July 4, 1946
➢ PDG Cesar Nazareno - the first Chief of the Philippine
National Police (PNP)

1Page
0
2020 Edition ©
===============================================================

__ooo0ooo__

CHAPTER 2
Law Enforcement Planning
________________________________________________

Definition of Terms

Plan is an organize schedule or sequence by methodical activities

intended to attain a goal and objectives for the accomplishment of
mission or assignment. It is a method or way of doing something in
order to attain objectives. Plan provides answer to 5W’s and 1 H.

Planning is a management function concerned with visualizing future

situations, making estimates concerning them, identifying issues,
needs and potential danger points, analyzing and evaluating the
alternative ways and means for reaching desired goals according to a
certain schedule, estimating the necessary funds and resources to do
the work, and initiating action in time to prepare what may be needed
to cope with the changing conditions and contingent events.

Law Enforcement Planning is an attempt by law enforcement

administrators in trying to allocate anticipated resources to meet
anticipated service demands. It is the systematic and orderly
determination of facts and events as basis for policy formulation and
decision affecting law enforcement management.

Operational Planning is the use of rational design or pattern for all

departmental undertaking rather than relying on change in an
operational environment. It is the preparation and development of
procedures and techniques in accomplishing of each of the primary
tasks and functions of an organization.

Law Enforcement Operational Planning

It is the act of determining policies and guidelines for police

activities and operations and providing controls and safeguards for
such activities and operations in the agency. It may also be the
Page

2020 Edition ©
===============================================================

process of formulating coordinated sequence of methodical activities

and allocation of resources to the line units of the police organization
for the attainment of the mandated objectives or goals.
• Objectives are a specific commitment to achieve a
measurable result within a specific period of time.
• Goals are general statement of
•
• typically with time horizon, or it is an achievable end state
that can be measured and observed. Making choices about
goals is one of the most important aspects of planning.

The process of police operational planning involves strategies or

tactics, procedures, policies or guidelines.
• Strategy is a broad design or method; or a plan to attain a
stated goal or objectives.
• Tactics are specific design, method or course of action to
attain a particular objective in consonance with strategy.
• Procedures are sequences of activities to reach a point or to
attain what is desired.
• Policy is a product of prudence or wisdom in the
management of human affairs, or policy is a course of
action which could be a program of actions adopted by an
individual, group, organization, or government, or the set of
principles on which they are based.
• Guidelines are rules of action for the rank and file to show
them how they are expected to obtain the desired effect.

Strategic Planning

It is a series of preliminary decisions on a framework, which in turn

guides subsequent decisions that generate the nature and direction of
an organization. This is usually long range in nature which includes: a.
Vision
b. Long-range thinking
c. Strategic focus
d. Congruence
e. A strategic response to change
1. Strategic framework

12
1Page
20 20 Edition ©
===============================================================

Strategic Planning Process

TASK 1 – Develop Mission and Objectives
TASK 2 – Conduct of PESTEL/SWOT Analysis
TASK 3 – Generate Alternative Strategies
TASK 4 – Develop Strategic Plan
TASK 5 – Develop Tactical Plan
TASK 6 – Assess Results of Strategic and Tactical Plan
TASK 7 – Repeat Planning Process

In the process, the police administrator can use the potent tool of
alternatives. Alternatives (options) are means by which goals and
objectives can be attained. They maybe policies, strategies or specific
actions aimed at eliminating a problem. Alternative do not have to be
substitutes for one another or should perform the same function. For
example, our goal is to “improve officer-survival skills.” The plan is to
train the officers on militaristic and combat shooting. The alternatives
could be:
Alternative 1 – modify police vehicles
Alternative 2 – issuing bulletproof vests
Alternative 3 – utilizing computer assisted dispatch system
Alternative 4 – increasing first-line supervision, etc

FUNDAMENTALS OF LAW ENFORCEMENT PLANNING

Objectives of Law Enforcement Planning

a. To increase the chances of success by focusing on results and
not so much on the objectives.
b. To force analytical thinking and evaluation of alternatives for
better decisions.
c. To establish a framework for decision making consistent with the
goal of the organization.
d. To orient people to action instead of reaction.
e. To modify the day-to-day style of operation to future
management.
f. To provide decision making with flexibility.
g. To provide basis for measuring original accomplishments or
individual performance.
h. To increase personnel involvement and to
improve communication.

Page

2020 Edition ©
===============================================================

Expectations in Planning
a. Improve analysis of problems
b. Provide better information for decision-making
c. Help to clarify goals, objectives, priorities
d. Result is more effective allocation of resources
e. Improve inter-and intradepartmental cooperation
and coordination
f. Improve the performance of programs
g. Give the police department a clear sense of direction
h. Provide the opportunity for greater public support
i. Increase the commitment of personnel

Characteristics of Good Law Enforcement Plan

a. With clearly defined Objectives or Goals.
b. Simplicity, Directness and Clarity
c. Flexibility

14
Page

20 20 Edition ©
===============================================================

d. Possibility of Attainment
e. Must provide Standard of Operation
f. Economy in terms of Resources needed for implementation

Guides in Planning (5 W’s and 1 H)

a. What to do – mission/objective
b. Why to do – reason/philosophy
c. When to do – date/time
d. Where to do – place
e. Who will do – people involve
f. How to do – strategy

Responsibilities in Planning

a. Broad External Policy Planning – is the responsibility of the

legislative branch of the government. The main concern of law
enforcement agencies in this broad external policy planning is
assisting the legislature in their determining of guidelines
through the passage of appropriate laws or ordinances for the
law enforcement agencies to enforce.

b. Internal Policy Planning – is the responsibility of the Head of

the law enforcement agency within their area of jurisdiction to
achieve the objectives or mission of the organization. They are
responsible for planning, organizing, staffing, directing,
coordinating, controlling, reporting and budgeting for the law
enforcement organization within existing policies and available
resources. For maximum effectiveness, they shall be responsible
for the technical operation of the organization and management
of their personnel.

Approaches in Planning
A variety of approaches are employed in the planning processes.
Each is unique and can be understood as a method of operationalizing
the word planning. There are basically five major approaches to
planning which are:

15
Page

20 20 Edition ©
===============================================================

a. Synoptic Approaches
It is also called the rational comprehensive approach which is the
dominant tradition in planning. It is also the point of departure
for most other planning approaches.

This model is based on a problem-oriented approach to planning

especially appropriate for police agencies. It relies heavily on the
problem identification and analysis of the planning process. It
can assist police administrators in formulating goals and
priorities in terms that are focused on specific problems and
solutions that often confront law enforcement.

Steps in Synoptic Planning

1. Prepare for Planning – The task of planning should be

detailed in a work chart that specifies (a) what events and
actions are necessary, (b) when they must take place, (c)
who is to be involved in each action and for how long, and (d)
how the various actions will interlock with one another.

2. Describe the present situation – Planning must have a

mean for evaluation. Without an accurate beginning database
there is no reference point on which to formulate success or
failure.
3. Develop projections and consider alternative future
states – Projections should be written with an attempt to link
the current situation with the future, keeping in mind the
desirable outcomes. It is important for the police executive to
project the current situations into the future to determine
possible, probable and desirable future states while
considering the social, legislative, and political trends existing
in the community.

4. Identify and analyze problems – the discovery of the

problems assumes that a system to monitor and evaluate the
current arena is already on place. Closely related to the
detection and identification of issues is the ability of the police
to define the nature of the problem, that is to be able to

16
Page

20 20 Edition ©
===============================================================

describe the magnitude, cause, duration, and the expense of

the issues at hand. A complete understanding of the problem
leads to the development of the means to deal with the
issues.

5. Set goals – Making choices about goals is one of the most

important aspects of planning. It makes no sense to establish
a goal that does not address a specific problem.
Remembering that the police departments are problem
oriented, choices about goals and objectives should adhere to
the synoptic model.
6. Identify alternative course of action – alternatives are
means by which goals and objectives can be attained. These
are options or possible things to be done in case the main or
original plan is not applicable.

Techniques in Selecting Alternatives

1. Strategic analysis – this include the study on the courses of

actions; suitability studies; feasibility studies; acceptability
studies; and judgment.

Suitability – each course of action is evaluated in accordance

with general policies, rules and laws.

Feasibility – these include the appraisal of the effects of a

number of factors weigh separately and together.

Acceptability – those judged to be suitable and feasible are

then realized in acceptability studies.

2. Cost – effectiveness Analysis – This technique is

sometimes called cost-benefit or cost performance analysis.
The purpose of this form of selection is that the alternative
chosen should maximize the ratio of benefit to cost.

3. Must-wants Analysis – This method of selecting a preferred

course of action combines the strengths of both strategic and
cost effectiveness analysis. Must-wants analysis is concerned

17
Page

20 20 Edition ©
===============================================================

with both the subjective weights of suitability, feasibility, and

acceptability and the objectives weights of cost versus
benefits.

4. Plan and carryout implementation – The police

administrator must be aware that the implementation
requires a great deal of tact and skill. It may be more
important how an alternative is introduced to a police
department than what actually is.

5. Monitor and evaluate progress – Evaluation requires

comparing what actually happened with what was planned
for-and this may not be a simple undertaking. Feedback must
be obtained concerning the results of the planning cycle, the
efficiency of the implementation process, and the
effectiveness of new procedures, projects or programs. This is
an important step of synoptic planning, trying to figure out
what, if anything happened as a result of implementing a
selected alternative.

6. Summation of the synoptic planning approach – This can

be done by making a summary of the presentation, could be
tabular or other forms of presentation.

7. Repeat the Planning Process – repetition of the process of

planning enables the planner to thresh out possible flaws in
the plan.

b. Incremental Planning

Incrementalism concludes that long range and comprehensive

planning are not only too difficult, but inherently bad. The problems
are seen as too difficult when they are grouped together and easier to
solve when they are taken one at a time and broken down into gradual
adjustments over time.

18
Page

20 20 Edition ©
===============================================================

c. Transactive Approach

It is carried out in face-to-face interaction with the people who

are to be affected by the plan and not to an anonymous target
community of beneficiaries. Techniques include field surveys and
interpersonal dialogue marked by a process of mutual learning.

d. Advocacy Approach

Beneficial aspects of this approach include a greater sensitivity

to the unintended and negative side effects of plans.

e. Radical Approach

The first mainstream involves collective actions to achieve

concrete results in the immediate future. The second mainstream is
critical of large-scale social processes and how they permeate the
character of social and economic life at all levels, which, in turn,
determine the structure and evolution of social problems.

CONSIDERATIONS IN POLICE PLANNING

a. Primary Doctrines
1. Fundamental Doctrines – These are the basic principles
in planning, organization and management of the law
enforcement agency in support of the overall pursuits of
the its Vision, Mission and strategic action plan of the
attainment of the national objectives.
2. Operational Doctrines – These are the principles and
rules governing the planning, organization and direction
and employment of the law enforcement agency in the
accomplishment of basic operational mission in the
maintenance of peace and order, crime prevention and
suppression, internal security and public safety operation.

19
Page

20 20 Edition ©
===============================================================

3. Functional Doctrines – These provide guidance for

specialized activities of the law enforcement agency in the
broad field of interest such as personnel, intelligence,
operations, logistics, planning, etc.

b. Secondary Doctrines
1. Complimentary Doctrines – Formulated jointly by two or
more bureaus in order to affect a certain operation with
regard to public safety and peace and order. These
essentially involve the participation of the other bureaus
and other law enforcement agencies.
2. Ethical Doctrines – These define the fundamental
principles governing the rules of conduct, attitude,
behavior and ethical norm of the law enforcement agency.

c. The Principles of Police Organization

These principles are considered in police planning in order
not to violate them but rather for the effective and efficient
development of police plans.

d. The Four (4) Primal Conditions of the Police Organization

1. Authority - the supreme source of government for any
particular organization. It is the right to exercise, to decide
and to command by virtue of rank and position
2. Mutual Cooperation - an organization exists because it
serves a purpose
3. Doctrine - provides for the organization’s objectives. It
provides the various actions, hence, policies, procedures,
rules and regulations of the organization are based on the
statement of doctrines
4. Discipline - it is imposed by command or self-restraint to
insure supportive behavior.

CLASSIFICATION OF LAW ENFORCEMENT PLAN

According to Coverage a. Local Plans b. Regional Plans

c. National Plans

20
Page

20 20 Edition ©
===============================================================

According to Time
a. Strategic or Long-Range Plan - It relates to plan which are
strategic or long range in application and it determine the
organization’s original goals and strategy. Ex. PATROL Plan 2030

b. Intermediate or Medium Range Planning – It relates to

plans, which determine quantity and quality efforts and
accomplishments. It refers to the process of determining the
contribution on efforts that can make or provide with allocated
resources. Ex. Master Plan Sandigan-Milenyo (Anti-Crime Master
Plan)

c. Operational or Short-Range Planning – Refers to the

productions of plans, which determine the schedule of special
activity and are applicable from one week or less than year
duration. Plan that addresses immediate need which are specific
and how it can be accomplished on time with available allocated
resources. Ex. OPLAN Tokhang

Factors affecting Police Planning

a. Condition – a consideration of political atmosphere, public

opinion; ideological aspirations; peace and order;
national/community ethics, behavior and discipline in the area
where the plan will be implemented.

b. Time – It is the period available to establish plan before putting

it into effort. Consider the time of execution/implementation, the
time interval and time allowed for the revisions and modifications
of plan.

c. Resources Available – Allocation of manpower, money and

materials
d. Skills and Attitudes of Management – Refers to the level of
experiences of the personnel who are involved in the preparation
of the plan and those who will execute the plan. Applicability of
good management principles shall be exploited.

21
Page

20 20 Edition ©
===============================================================

e. Social and Political Environment – Refers to social and

political practices, which will be affected by the plan or plan
affecting these practices, beliefs and norms of society.

f. Physical Facilities – Refers to machinery, instrument or tools in

the attainment of the goals of the plan. A certain system or
structural designs in order to meet expected results.

g. Collection and Analysis of Data – Ready sources and basis of

good decision-making by the makers of the plan may be properly
obtain through research and other means of information
gathering techniques.

TYPES OF PLAN (IN GENERAL)

a. Reactive Plans are developed as a result of crisis. A particular

problem may occur for which the department has no plan and
must quickly develop one, sometimes without careful
preparation.

b. Proactive Plans are developed in anticipation of problems.

Although not all police problems are predictable, many are, and
it is possible for a police department to prepare a response in
advance.

c. Visionary Plans are essential statements that identify the role

of the police in the community and the future condition or state
to which the department can aspire. A vision may also include a
statement of values to be used to guide the decision-making
process in the department.

d. Strategic Plans are designed to meet the long-range, overall

goals of the organization. Such plans allow the department to
adapt anticipated changes or develop a new philosophy or model
of policing (e.g. community policing). One of the most important
aspects of strategic planning is to focus on external
environmental factors that affect the goals and objectives of the

22
Page

20 20 Edition ©
===============================================================

department and how they will be achieved. Important

environmental factors include personnel needs, population

23
Page

20 20 Edition ©
===============================================================

trends, technological innovations, business trends and demand,

crime problems, and community attitudes.

e. Operational Plans are designed to meet the specific tasks

requires to implement strategic plans. There are four types of
operational plan:

1. Standing Plans provide the basic framework for

responding to organizational problems. The organizational
vision and values, strategic statement, policies,
procedures, and rules and regulations are examples of
standing plans. Standing plans also include guidelines for
responding to different types of incidents; for example, a
civil disturbance, hostage situation, crime in progress, and
felony car stops.

2. Functional Plans include the framework for the operation

of the major functional units in the organization, such as
patrol and investigations. It also includes the design of the
structure, how different functions and units are to relate
and coordinate activities, and how resources are to be
allocated.

3. Operational-efficiency, effectiveness, and

productivity plans are essentially the measures or
comparisons to be used to assess police activities and
behavior (outputs) and results (outcomes). If one of the
goals of the police department is to reduce the crime rate,
any change that occurs can be compared to past crime
rates in the same community or crime in other
communities, a state, or the nation. If the crime rates
were reduced while holding or reducing costs, it would
reflect an improvement not only in effectiveness but also in
departmental productivity.

4. Time-specific Plans are concerned with specific purpose

and conclude when an objective is accomplished or a
problem is solved. Specific police programs or projects
such as drug crackdown, crime prevention program, and
neighborhood clean-up campaign are good examples of
time-specific plans. 20
Page

2020 Edition ©
===============================================================

KINDS OF LAW ENFORCEMENT PLAN

a. Policy and Procedural Plans – to properly achieve the

administrative planning responsibility within in the unit, the
Commander shall develop unit plans relating to: (a) policies or
procedure; (b) tactics; (c) operations; (d) extra-office activities;
and (e) management.
Further, standard-operating procedures shall be planned to guide
members in routine and field operations and in some special
operations in accordance with the following procedures:

1. Field Procedure – Procedures intended to be used in all

situations of all kinds shall be outlined as a guide to officers
and men in the field. Examples of these procedures are those
related to reporting, to dispatching, to raids, arrest, stopping
suspicious persons, receiving complaints, touring beats, and
investigation of crimes. The use of physical force and clubs,
restraining devices, firearms, tear gas and the like shall, in
dealing with groups or individuals, shall also be outlined.

2. Headquarters Procedures – Included in these procedures

are the duties of the dispatcher, jailer, matron, and other
personnel concerned which may be reflected in the duty
manual. Procedures that involve coordinated action on activity
of several offices, however, shall be established separately as
in the case of using telephone for local or long-distance calls,
the radio teletype, and other similar devices.

3. Special Operation Procedures – Certain special operations

also necessitate the preparation of procedures as guides.
Included are the operation of the special unit charged with
the searching and preservation of physical evidence at the
crime scenes and accidents, the control of licenses,
dissemination of information about wanted persons,
inspection of the PNP headquarters, and the like.

25
Page

20 20 Edition ©
===============================================================

b. Tactical Plans – These are the procedures for coping with

specific situations at known locations. Included in this category
are plans for dealing with an attack against buildings with alarm
systems and an attack against the PNP headquarters by lawless
elements. Plans shall be likewise be made for blockade and jail
emergencies and for special community events, such as longer
public meetings, athletic contests, parades, religious activities,
carnivals, strikes, demonstrations, and other street affairs.

c. Operational Plans – these are plans for the operations of

special divisions like the patrol, detective, traffic, fire and
juvenile divisions. Operational plans shall be prepared to
accomplish each of the primary police tasks. Each division or unit
has primary responsibility to plan operations in its field and also
to execute the plans, either by its own personnel or, as staff
agency, by utilizing members of the other divisions.

Plans for operations of special division consist of two types,

namely: (1) those designed to meet everyday, year-around
needs, which are the regular operating program of the divisions;
and (2) those designed to meet usual needs, the result of
intermittent and usually unexpected variations in activities that
demand their attention.

Regular Operating Programs – these operating

division/units shall have specific plans to meet current needs.
The manpower shall be distributed throughout the area of
jurisdiction in proportion to need. Assignments schedules shall
be prepared that integrate such factors as relief days, lunch
periods, hours, nature, and location of regular work. Plans shall
assure suitable supervision, which become difficult when the
regular assignment is integrated to deal with this short time
periodic needs.

Meeting usual needs – the usual needs may arise in any

field of police activity and nearly always met in the detective,
vise and juvenile division by temporary readjustment of regular
assignment.

26
Page

20 20 Edition ©
===============================================================

d. Extra-office Plans – the active interest and the participation of

individual citizen is also a vital to the success of the PNP
programs that the PNP shall continuously seek to motivate,
promote and maintain an active public concern in its affairs.
These are plans made to organize the community to assist in the
accomplishment of objectives in the fields of traffic control,
organize crime, and juvenile delinquency prevention. The
organization may be called safety councils for crime commissions
and community councils for the delinquency prevention. They
shall assist in coordinating community effort, in promoting public
support, and in combating organized crime. Organization and
operating plans for civil defense shall also be prepared or used in
case of emergency or war in coordination with the office of the
Civil Defense.

e. Management Plans – Plans of management shall map out in

advance all operations involved in the organization management
of personnel and material and in procurement and disbursement
of money, such as the following:

a. Budget Planning – present and future money needs for

personal, equipment and capital investments must be
estimated. Plans for supporting budget request must be made
if needed appropriations are to be obtained.

b. Accounting Procedures – procedures shall be established

and expenditure reports be provided to assist in making
administrative decisions and holding expenditures within the
appropriations.

c. Specifications and Purchasing Procedures –

Specifications shall be drawn for equipment and supplies.
Purchasing procedures shall likewise be established to insure
the checking of deliveries against specification of orders.
Plans and specifications shall be drafted for new building and
for modeling old ones.

27
Page

20 20 Edition ©
===============================================================

d. Personnel – procedures shall be established to assure the

carrying out of personnel programs and the allocation of
personnel among the component organization units in
proportions need.

e. Organization – a basic organization plan of the

command/unit shall be made and be posted for the guidance
of the force. For the organization to be meaningful, it shall be
accompanied by the duty manual which shall define
relationships between the component units in terms of
specific responsibilities. The duty manual incorporates rules
and regulations and shall contain the following: definition of
terms, organization of rank, and the like, provided the same
shall not be in conflict with this manual.

STEPS IN LAW ENFORCEMENT PLANNING

1. Frame of Reference – This shall base on a careful view of the

matters relating to the situation for which plans are being
developed. Opinions or ideas of persons who may speak with
authority of the subjects and views of the police commanders,
other government officials, and other professionals shall be
considered.

2. Clarifying the Problems – This calls for the identification of the

problems, understanding both its records and its possible
solution. A situation must exist for which something must and
can be done. For example, an area in a city or municipality is
victimized by a series of robbers. There is a need for reaching
the preliminary decision that robberies may be reduced in the
area, and that the pattern of operation, in general, is one by
which the police can reduce them.

3. Collecting all Pertinent Facts – No attempt shall be made to

develop a plan until all facts relating to it have been carefully
reviewed to determine the modus operandi, suspects, types of
victims, and such other information as may be necessary. Facts

28
Page

20 20 Edition ©
===============================================================

relating to such matters as availability, deployment, and the use

of present personnel shall be gathered.

4. Developing the Facts – After all data have been gathered, a

careful analysis and evaluation shall be made. These provide the
basis from which a plan or plans are evolved. Only such facts as
any have relevance shall be considered.

5. Developing Alternative Plans – In the initial phases of plan

development, several alternative measures shall appear to be
logically comparable to the needs of a situation. As the
alternative solutions are evaluated, one of the proposed plans
shall usually prove more logical than the others.

6. Selecting the Most Appropriate Alternative – A careful

consideration of all facts usually leads to the selection of the best
alternative proposal.

7. Selling the Plans – A plan, to be effectively carried out, must

be accepted by persons concerned at the appropriate level of the
plan’s development. For example, in a robbery case, the patrol
division head may be preparing the plan. At the outset, the
detective chief is concerned and shall be consulted. As the
planning develops, there may be a need it involve the head of
the personnel, records and communication units and all patrol
officers.
8. Arranging for the Execution of the Plan – the execution of a
plan requires the issuance of orders and directives to units and
personnel concern, the establishment of a schedule, and the
provision of manpower and the equipment for carrying out the
plan. Briefing shall be held and assurance shall be received that
all involved personnel understood when, how, and what is to be
done.

9. Evaluating the Effectiveness of the Plan – The results of the

plan shall be determined. This is necessary in order to know
whether a correct alternative was chosen, whether the plan was
correct, which phase was poorly implemented, and whether
additional planning may be necessary. Also, the effects of the

29
Page

20 20 Edition ©
===============================================================

executed plan or other operations and on total police operations

shall be determined. Follow-up is the control factor essential for
effective command management.

DECISION MAKING: An Essential Element in Planning

A decision is a choice from among a set of available alternatives.

Managerial Decisions - are choices between alternative courses of

action translated into administrative behavior designed to achieve an
organization’s mission through the accomplishment of specifically
targeted goals and objectives.

Elements of Managerial Decisions

a. Choices – If a police administrator does not have the

opportunity or the ability to make a choice, there is no real
decision. Following rules, obeying orders or being coerced to act
in certain ways cannot without a great deal of distortion be
construed as making decisions.

b. Alternatives – There must be more than one possible course of

action available in order for the police administrator to have a
choice. Effective police managers look for and try to create a
realistic option for resolving problems.

c. Targets – Goals and objectives come together to perform a vital

function. They activate give direction to the decision-making
process.
d. Behavior – Making decision is irrelevant unless they are
translated into action.

Importance of Decision Making in Law Enforcement Planning

Law enforcement planning is involved in a problem-solving

process. Problem solving and decision-making are used

30
Page

20 20 Edition ©
===============================================================

interchangeably in the context of management and administration

because police managers spend most of their time making decisions to
resolve problems.

Stages of Decision-making in Law Enforcement Planning a.

Intelligence – this involves scanning the environment for
condition that require the decision.

b. Design – entails creating, developing, and analyzing possible

courses of action (creative problem solving).

c. Choice – refers to the actual selection of a particular course of

action from among available alternatives.

Based on these concepts, decision making and planning can be

described as multi-step process through which problems are
recognized, diagnosed, and defined alternative solution are generated,
select and implemented.

GENERAL PRINCIPLES INVOLVED IN DECISION MAKING

Rule 1. Make a decision – effective police managers are graded on

their ability to make decision. This is because indecisiveness is easily
perceived and generates disrespect, destroys confidence, lowers
morale, and adversely affects performance.

Rule 2. Don’t Worry – avoid anxiety by not worrying about decisions

already made. The only time of reconsidering a decision is when there
is a genuine need to consider an alternative course of action.

Rule 3. Expect Criticism – criticism is inevitable. In a positive sense,

it means the police manager is doing something that is worthy of
attention.
ORGANIZATIONAL DECISION-MAKING

It refers to the formal exercise of an authority to decide based

on a designated level of management and the scope of decision

31
Page

20 20 Edition ©
===============================================================

proportionate to the total organization. The greater the proportion, the

broader the scopes of decision, hence the levels of management are
arranged in a hierarchical order indicative of formal authority or
position power. It is categorized as follows:

a. Upper-level Managers – the elected or appointed top

executives who serves as administrators, heads and directors.

b. Middle-level Managers – located between the top and the

lower levels of the organization. Examples are bureau chiefs,
division heads who acts in behalf of their superiors to interpret
policies, coordinate activities, motivate employees, and maintain
discipline. Their decision-making authority is limited and always
constrained by preexisting policy.

c. Lower-level Managers – (Supervisory) – responsible for job

related activities of others. They are the work group leaders
charged with getting their subordinates to carry out specific
tasks as set down by middle level managers. They do make
decision though highly structured and related almost exclusively
to operational consideration.

Factors that Influence Decision

A. Internal Factors
a. The specificity of organization’s mission, goals and
objectives.
b. The delegation of sufficient authority to enable managers
to carry out their assigned duties.
c. The degree of autonomy given to management personnel
at different levels in the organization.
d. The leeway granted to the managers by departmental
policies, procedures, rules, and regulation.
e. The availability of valid, reliable, and objective information
on which to base decision.
f. The time and energy used to select, retain qualified
managers.
g. The nature, extent and effect of intra-organizational
conflict.

32
Page

20 20 Edition ©
===============================================================

h. The adequacy of the reward system in promoting timely ad

effective decision-making.
B. External Factors
a. Social Instability
b. Rising Expectation
c. Professional Ethics
d. legal Constraints
e. Dwindling Resources
f. Political Conflict
g. Technological change

Internal and external environmental factors are never under the direct
control of the decision-maker. Effective decision-maker learns and
accepts to cope with this uncertainly, complexity, and risk.

C. Situational Variables

No two decisions are exactly the same. There are simply too
many variables. Every police problem that elicits a decision is unique in
terms of its nature and extent, difficulty, urgency, seriousness,
complexity and solution.

D. Personal Variables

It includes mental health, intellectual capacity, education and

experience, values, attitude and perception and motivation to act.

NINE (9) STEPS IN RATIONAL DECISION MAKING

a. Awareness of the need to make decision – Decision-

making is activated by the recognition of opportunities as well
as problems.

b. Identifying an existing problem – When feedback

suggests there is a problem, it must be diagnosed and
defined in explicit terms.

33
Page

20 20 Edition ©
===============================================================

c. Listing possible and probable causes – Once the problem

has been identified and articulated, all possible causes must
be considered.

d. Designing alternative solutions – develops and tests a

fairly wide creative solution.

e. Evaluating alternative solution – evaluation must be

interim of probability, effect, importance, feasibility,
sufficiency, and realism.

f. Choosing an alternative solution – all available options

must be analyzed and compared to one another in order to
select objectively the best alternative.

g. Implementing a decision – a decision is meaningless if it is

not translated into effective action.

h. Analyzing feedback – analyze feedback in order to assess

the effectiveness of a given solution on a targeted problem

i. Making necessary adjustments – be proactive and do not

hesitate to make necessary midcourse corrections.

34
Page

20 20 Edition ©