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International Management of Serious Crime Singapore 2011

10 to 29 April 2011

STRATEGIC CRIME MANAGEMENT INITIATIVE

Institutionalizing a Comprehensive Training System for Investigation and Detective Management to Address Efficiency and Effectiveness in the Resolution of Crime

POLICE SR SUPT KEITH ERNALD L SINGIAN


Directorate for Investigation and Detective Management Philippine National Police, Philippines

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

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

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TABLE OF CONTENTS
Abbreviations / Acronyms I. II. III. IV. Executive Summary Introduction Background Reviews and Analyses
Quick Look at the Impact of Police Investigation Weak Entry Level of the Police Force Not Without Precedents

ii iii 1 2 3 6 6 7 8 10 11 11 12 12 12 13 13 14

V. VI.

Proposed Solutions DISCUSSIONS


A. Selection of Criteria B. Comparative Analysis Qualitative Interpretations

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

Option 2
(Relational Seminars, Workshops and Crash Courses)

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

Option 4
(Institutionalize a Comprehensive, Ladderized and Hierarchical Training System)

VII.

OBSERVATIONS AND RECOMMENDATIONS


Implementation Strategy Assessment / Review Metrics Budget Allocation

15 16 17 17 17 19

VIII. IX.

CONCLUSION BIBLIOGRAPHY / REFERENCES

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ABBREVIATIONS / ACRONYMS
CIC CIDDC CJS CSE DIDM ELK ED GOP IDEA ITP NAPOLCOM NUP PMA PCO PC/INP PDG PGS PMO PNCO PNP POI PPSC PSBRC SIDD SOP TWG UNDP Criminal Investigation Course Criminal Investigation and Detective Development Course Criminal Justice System Crime Solution Efficiency Directorate for Investigation and Detective Management Extra-Legal Killings Enforced Disappearances Government of the Philippines Investigators and Detectives Eligibility Accreditation Integrated Transformation Program National Police Commission Non-Uniformed Personnel Philippine Military Academy Police Commissioned Officers Philippine Constabulary/Integrated National Police Police Director General Performance Governance System Program Management Office Police Non-Commissioned Officers Philippine National Police Program of Instruction Philippine Public Safety College Public Safety Basic Recruit Course School for Investigation and Detective Development Standard Operating Procedure Technical Working Group United Nations Development Program

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

I.

EXECUTIVE SUMMARY

This Strategic Crime Management Initiative (SCMI) proposes to institutionalize a comprehensive training system for investigation and detective management to address efficiency and effectiveness in the resolution of crime. Measuring crime resolution through the conviction rate is a directive coming straight from the President of the Republic of the Philippines, His Excellency Benigno Simeon C. Aquino III. This executive directive heeds the immediate action and collaboration of 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 CJS directly involved in the system in terms of law enforcement. Hence, the PNP is tasked to utilize all its resources in significantly contributing to crime resolution, with the Conviction Rate as its index of success or failure. The PNP has two (2) main functions, to wit: 1. Crime Prevention (Policing); and 2. 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 and facilitate the judicial system to firmly and accurately state a resolute conviction in shorter 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) main considerations for this: 1. Most of the police workforce that enter the PNP structure have derisory skills and knowledge on investigation and detective management; and 2. Most of the police personnel are not truly interested in expanding his/her skills and knowledge on investigation and detective management because there 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 detective management; and 4. Set a career growth path for PNP investigators and detectives. This study will show that it is highly recommended to institutionalize a comprehensive training system for investigation and detective management in order to address the efficiency and effectiveness in the resolution of crimes up to the conviction stage in courts. 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 and detective management;

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

3. Set a career path for PNP investigators and detectives through its ladderized 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 of institutionalizing a Comprehensive Training System for investigation and detective management in order to address the efficiency and effectiveness in the resolution of crimes 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 and accurately state a resolute conviction in shorter period of time. Thus, the efficient and effective 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 crime resolution requires competent and adept investigators and detectives. If Conviction Rate will be the index of crime resolution, then it is an impetus that the police force of the PNP should be well-trained and educated in investigation works and detective management. Apparently, 74.80% of the PNP investigators have not received formal training 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 personnel show no practical interest in further developing their skills and knowledge in investigation works and detective management because at present, a career growth path 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 a comprehensive 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.

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

This paper will tackle the various relevant issues establishing the apparent reality of the PNP investigators and detectives. It will consider essential historical perspectives that lead to the manifestation of the problem and its consequences if not addressed properly 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 these options will be highly recommended as the best course of action. However, this study is limited only to addressing the much-needed formal training and practical education for the police force in order for the PNP to deploy more competent investigators and detectives in the field, nationwide. Logistics and equipment are another issue. Also, an updated and more reliable data on the profile of the PNP police force and the functional structure for investigation and detective management are yet to be reviewed, established and possibly revised. Although the School for Investigation and Detective Development (SIDD) has started emancipating the insufficiency of the required training and education, its Criminal Investigation Course (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 evaluate and/or measure the degree of learning competencies vis-a-vis actual investigation works and detective management. It will be shown in this paper that the CIC initiative of the Directorate for Investigation and Detective Management (DIDM) is a good start. In fact, it serves as the pre-cursor for developing a comprehensive training system for investigation and detective management. But as such, obstacles have been encountered, which also delimits the breadth of this study, to wit: 1. There are reasonable doubts on the reporting of the actual crime scenarios down 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; and 4. Limited training staff and pool of instructors. Nonetheless, this paper focuses on addressing the main issue the insufficiency of competent investigators and detectives on the field.

III. BACKGROUND
Shortly after his assumption into office, His Excellency President Benigno S Aquino III aired his concern over the continuous unabated killings particularly on extralegal killings, including enforced disappearances, which have tremendous effect on the PNPs Crime Solution Efficiency (CSE). His concern rationalizes that convictions in court of an accused person and not the mere filing of a case in court or arrest of suspects shall be the yardstick of police efficiency and effectiveness in its campaign against criminality. The recent developments in the crime environment have put the PNP on the spot and have questioned its institutional ability to effectively investigate and resolve serious and sensational cases if not, manage a coherent and holistic approach towards developing an air tight case against criminal offenders. While the PNP has recorded several success stories in various fronts, it appears that its investigative processes deserve another look considering that investigation is the heart and soul of policing.

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

It is therefore incumbent upon the PNP in coordination with the other pillars of Criminal Justice System (CJS) to devise a new and different approach in order to improve resolution of crime that will eventually upgrade the rate of conviction. Towards this end and in line with the new thrustIntegrated Transformation Program-Performance Governance System (ITP-PGS) and other existing policies of the PNP leadership which are envisioned to institutionalize and standardize the functional set up of the different levels of investigation offices in the organization, the need to institutionalize a comprehensive training system is of paramount importance. A quick look at the PNP investigative processes would lead us to examine its main components, which basically include organizational structure, practices, systems and procedures, new technology and people, who must be competent and effective if the system 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 investigators who are the principal actors in the solution of cases and subsequent conviction of offenders or those assigned in an investigation office along side with their respective positions, on a progressive manner in the same way as they are promoted to positions of higher responsibilities. It is quite ironic that the PNP offers only one (1) regular investigation course, the Criminal Investigation and Detective Development Course (CIDDC) now the Criminal Investigation Course (CIC) and only for Police Non-Commissioned Officers (PNCOs). Over the years, the organization seems to have forgotten to conceptualize and implement 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 effective field investigators who possess the skills and the right attitude to work on a case and pursue it until the case is resolved by the courts. Another vital area that the PNP has to look into is shaping and developing its detective management curricula and structure.

Historical Perspectives
History has its stake in the development of the PNP as an efficient and highly reliable police organization. Historical development of the whole PNP structure as an independent organization from the military shows a backlog in developing a continuing professional education internal to the police force. Prior to the EDSA I Revolution, known worldwide as the People Power Revolution of 1986, the policing tasks are still under the military supervision in the guise of the defunct Philippine Constabulary/Integrated National Police (PC/INP). The succeeding administration has put in place a law that will make the police functions independently from the military that eventually lead to the establishment of the PNP. Though the DIDM was concurrently instituted with the establishment of the PNP, the following provide us an overview of the priorities of the previous Chiefs of the PNP:

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

Ebdane (2002-2004) Aglipay (2004-2005) Lomibao (2005-2006) Calderon(2006-2007) Razon (2007-2008)

Versoza (2008-2010)

O.N.E. PNP Impact and Doable Projects / Programs Stronger Police Stations Housing Program (boosting the morale of the PNP personnel) Image Building (Mamang Pulis brought back the police closer to the people) Integrated Transformation Program (ITP) Performance Governance System (PGS)

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

Recent Observations
The earlier attempts to address the issue of competency in field investigation and detective 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 are appointed to the cases based on availability and not on sufficient skills and competency; 2. There are no established contingency plans or Standard Operating Procedures (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 prosecutors and/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 on investigation and detective management across the PNP structure from PNCOs to PCOs.

Exigencies
The main issue is now established that the PNP must breed competency in field investigation and detective management to address the efficiency and effectiveness in 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 of uniformed personnel; 2. Career path in investigation and detective management remains unseen or un-chosen among the police force implying a very low interest in this main function of the PNP; 3. Eligibility for investigators and police detectives is still virtually non-existent inspite of the approved Memo Circular by the former Chief, PNP; and

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

4. The Public Safety Basic Recruit Course (PSBRC) of the Philippine Public Safety College (PPSC) remains inadequate in terms of the curricula to fully supply competent new police force. If these issues will not be given priority attention, the apparent situation may eventually 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 fewer investors, lesser job opportunities, higher inflation, closure of businesses and others; and 8. Socio-political impact of low crime resolutions would spell widespread fear of crimes and even socio-civic unrest or worst, civil war. The current crime situation beckons a radical transformation from within the police force 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 futile early attempts to address the issue of competency of field investigators and police detectives, and, the recent review of unabated high-profile crimes by a foreignassisted independent body, all pertain to the re-engineering of the existing training services internal to the PNP up to the development of a comprehensive, ladderized and hierarchical training system for investigation and detective management, eventually leading to its institutionalization.

Quick Look at the Impact of Police Investigation

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

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

Weak Entry Level of the Police Force


It was well appreciated that the PPSC for developed the PSBRC as mandated by law. However, for more than two decades now since its implementation, PSBRC is no 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 most part, are basically theoretical discussions practical training such as role-playing and case scenario build are not included. It is of no wonder that the EPJUST evidently found the lack of competency in handling investigation and detective works as an apparent 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 have formal training on investigation and/or detective management.
PROFILE OF INVESTIGATORS
As of January 2011
PROs (UNITS) DESKs
NR PERSL OCCUPYING INVESTIGATIVE POSITIONS NR OF PERSL WITH FORMAL TRAINING NR OF PERSL W/OUT FORMAL TRAINING PERCENTAGE (%)

NCRPO PRO ARMM PRO COR PRO CARAGA PRO 1 PRO 2 PRO 3 PRO 4A PRO 4B PRO 5 PRO 6 PRO 7 PRO 8 PRO 9 PRO 10 PRO 11 PRO 12 TOTAL

583 181 358 338 660 399 798 719 339 359 451 389 383 328 77 407 222 6,991

301 53 157 58 164 124 217 168 79 82 77 52 90 18 51 42 29 1,762

282 128 201 280 496 275 581 551 260 277 374 337 293 310 26 365 193 5,229

48.37 70.72 56.15 82.84 75.15 68.92 72.81 76.63 76.70 77.16 82.92 86.63 76.50 94.51 33.77 89.68 86.94 74.80

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

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

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 legal basis for the PNP to implement an investigation and detective management program. With this resolution, the Directorate for Investigation was renamed to the present Directorate for Investigation and Detective Management or DIDM, whose main task is basically capacity-building for all field investigators and police detectives, from training to accreditation to eligibility formulation and policy making. In consonance with this, the same memo gave birth to the School for Investigation and Detective Development (SIDD) to develop and implement a special training program for detectives, 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 and accreditation of PNP investigators in 2002, not because of the increasing crime incidents but the alarming rise in the number of unsolved cases from 1998 up to that year. This entails that even nine (9) years ago, there was already a public perception that the PNP is incapable of solving crimes, eventually pointing to the persistent lack of competent field investigators and police detectives. This standardization actually intended to create rank-based investigator positions with corresponding training programs and compensation appreciation. This means that as early as 2002, there was already an attempt to develop a career path along the field of investigation. But in a technically assisted study sponsored by the United Nations Development Program (UNDP), an in-depth transformation program must be undertaken, overhauling the whole operations of the PNP, which was then under former Chief, PNP Aglipay. The transformation study report, released in June 2005, indicated some perturbing performance issues with criminal justice, marking a low conviction rate of about 18% of the criminal cases filed in courts. It was also indicated that about 35% of the cases in courts were archived due to the inability of the police to apprehend and produce the suspect(s). The report further shows that evidences are either inadequate or tampered, connoting either an inadvertent or deliberate mismanagement of cases. Accordingly, these issues have profound implications in particular to the competency of 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, PNP Lomibao issued Memorandum Circular 2005-009, intending to institutionalize a system of Investigators and Detectives Eligibility Accreditation or IDEA through the creation of its corresponding board or the IDEA Board. The IDEA circular seeks to establish policies on human resources development, and one of which mandates all eligible police investigators and detectives to undergo the regular enhancement courses offered by the PNP Detective School, for purposes of career advancement, job enrichment and specialization. Also, it stipulates salary emancipation for specialized investigators and detectives.

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

Clearly, the IDEA circular does not really seek to reform or re-engineer the training system, rather, only rely on the courses already at hand, which were later found to be still inadequate. Also, the job enrichment part of the circular pertains to rotation of investigators 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 to strengthen the police station as his priority program, underlining the presence of the police force in every community. Though this police visibility tactic may temporarily drive away or derail the incidents of criminality, it does not directly address the issue of competency in field investigation and detective management. The PNP Transformation Program has also suggested reforms on the social welfare of the uniformed personnel. Heeding this plea, the succeeding Chief, PNP Calderon focused his reforms on providing housing program for the police force. Again, crime resolution policies were secondary, albeit the housing program amplified enthusiasm among the police force. Now that the uniformed PNP personnel can worry less about their remuneration package, the following Chief, PNP Razon aimed at bringing back the trust and confidence of the public through building the image of the Police as a civilian in character apart from being an authority of law enforcement. This directly hit one of the 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 or report any crime incidents to their community police station. This way, appropriate coordination 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 main functions of the PNP need to be addressed on equal footing. Previous to the incumbent, Chief, PNP Versoza finally laid the grounds on transforming the PNP to a more capable, effective and credible organization, true to its two main functions. The gains of his Integrated Transformation Program may be summed up to the following: 1. Programs should be sustainable and comprehensive towards achieving the PNP 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, from national to local to every police in every community; 4. Establishment of the Citizens Charter for a more transparent, accountable and responsive police service; 5. Enforcement of the Barangay Peacekeeping Action Teams to strengthen crime prevention and to increase active reporting of crime incidents from the community to the police station; 6. Support programs for citizens empowerment; 7. Development of moral ascendancy programs; 8. Capability enhancement measures; and most importantly 9. Instituting the Performance Governance System (PGS) aimed at providing a comprehensive framework that will translate the organizations objectives into a coherent set of performance measures.

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Continuing the reforms of his predecessor, incumbent Chief, PNP Bacalzo paid attention to capacity building as an integral part of the transformation. This necessitates 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 noted the low conviction rate is directly proportional to the competency of police investigators and detectives, which in turn reflects the adequacy of the training programs the police force undergo. A Letter of Instruction was issued to re-engineer the Criminal Investigation and Detective Development Course (CIDDC) into a more comprehensive training program, thus paving the way for the recently implemented Criminal Investigation Course or CIC. The development of the CIC is a testimony that indeed, there is an urgent need to institute a comprehensive training system (not just a set of programs) that is ladderized and hierarchical in form yet sustainable and can be institutionalized amidst change in the PNP leadership all aligned with the present Integrated Transformation Program. Looking back at the profile of the present investigators nationwide, 74.8% still need formal training and practical education on investigation and detective management.

V. PROPOSED SOLUTIONS
The apparent general lack of competency among the present PNP investigators and detectives, as established in the preceding policy paper, is surrounded by the following issues: 1. Police investigation, as an integral part of the CJS, directly affects the outcome of a case, thus significantly contributing to the low or high conviction rate which in turn is now pressing directive coming from the President of the Republic of the Philippines; 2. The entry level of the police force is weak in practical training on investigation and does not include basic detective course; 3. Legal bases for developing training programs for investigation and detective management, and, for instituting a career path with corresponding salary adjustments, were laid since 1997, but the corresponding attempts to implement and institute these were impotent due to the priorities set by the previous leaderships leading to the present crisis on competency of the current roster of PNP investigators and detectives; and that 4. An integrated approach in transforming the PNP, to include the overhauling or even the development of a sustainable comprehensive training system for investigation and detective management, which will also set forth a solid basis for eligibility, has just recently took off with the initial implementation of the CIC. In these regards, the following options are suggested to resolve the crisis in competency, alongside its surrounding issues:

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Option 1:

Create Special Teams to Assist in the Conduct of Investigation This option will outrightly address the impact of Police Investigation in the Criminal Procedure. Avail of Relational Seminars, Workshops and Crash Courses This option will immediately address the pressing issue for specialized trainings of field investigators and police detectives, which was outlined in the precedent attempts. Recommend Re-engineering of the PSBRC to the PPSC Though this option may take time for reviewing and re-engineering, this will address the weak entry level for the future police force. Institutionalize a Comprehensive, Ladderized, Hierarchical Training System This option requires, initially, the development of a comprehensive training system for almost all PNP uniformed personnel from PNCOs to PCOs in a ladderize and hierarchical form yet must be sustainable for it to be institutionalized.

Option 2:

Option 3:

Option 4:

VI. DISCUSSIONS
A. Selection of Criteria This paper shall employ an inductive way of resolving the crisis, by addressing the issues surrounding the main problem eventually leading to its most appropriate course of actions. Hence, given the summary of the persistent problem in the previous discussion, the following criteria are hereby set: 1. Competency Will it address the competency need of the current 74.8% of the total PNP personnel occupying investigative positions who do not have any formal training on investigation and/or detective management? 2. Conviction Rate Will it significantly raise the conviction rate to a satisfactory level? 3. Career Development Will it set forth a career path in terms of professional growth with corresponding appreciation in compensation? 4. Sustainability Is the option sustainable in the long term or will it be modified dependently on constantly changing factors? 5. Progressiveness Will 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 Implications Given the depth and breadth of the option, will it be cost-efficient in the long run? Cost-efficiency will the expected outcomes justify the budget only as an expense or as an investment in resolving the main crisis? 7. Public Opinion Will 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 are comparatively 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 the present 74.8% of the total PNP personnel occupying investigative positions, who do not have any formal training on investigation and/or detective management. Assigning special teams for an on-going case may suffice the immediacy of that case but it does not address the competency issue. The EPJUST report shows that even in high-profile cases being handled by special task forces that include high-ranking PCOs, conviction remains elusive. Based on this report, case management is generally poor. Taking into consideration the on-the-job training that may be brought about by providing assistance to field investigators through the assigned special teams to their case, the assisted police unit may gain valuable experiences out of this mode of learning. However, there is no set career path for this situation, and, their corresponding specialist pay remains temporal and not actually integrated into their compensation package. Reviewing the selection process in the precedents, the special teams are usually created on an ad-hoc basis and more often than not, according to availability of investigators 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 the long 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 on detective management, which will entail budget allocation for rush and compact training programs without the guarantee of increasing competency in resolving crimes. Though the formation of special teams or task forces may capture initial approval from the public as it will set an impression that the PNP is really doing something to abate the situation, the facts have pointed out that due to the absence of a solid foundation for competency, such efforts may still be futile and the conviction rate will remain low, which will not significantly contribute to the credibility and functionality of the PNP. Option 2: Avail of Relational Seminars, Workshops and Crash Courses The nature of this optional solution entirely depends on the training programs being offered by institutions or entities outside of the PNP structure. Over the years, these short-termed programs, which are usually highly specialized, have mostly come from foreign agencies. Only a few local entities have sufficient program offerings, such as the PPSC, which offers specialized crash courses that are based on the rank. Typically, the format and structure of these external program offerings are abridged in contents and condensed in length of time. Mostly, cases are presented and key learning areas are identified in the conduct of these programs, but lacking in interactive tools such as role-playing, case-scenario build-up and other practical activities, 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 arises or even on a regular basis. Since these are formulated and will be conducted by third party professionals, these programs come with a premium on price. However, just like in the previous years, most of the past seminars conducted by third parties were sponsored by their international agency partners, implicating only a minimum logistical cost for the PNP. With the criteria at hand, the nature, format, structure and availability of these programs will not suffice the competency need of the PNP, eventually maintaining the conviction rate at its apparent unsatisfactory level. Also, such programs are external and not integrated into the professional profiling of the police force, thus, will not 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 to various third party training programs will create a public image that the PNP is utterly not capable of training its own rank and file. Nonetheless, one importance of these third party programs would actually provide the PNP with new perspectives in developing its own structure towards better management of criminal cases, with various ways to evaluate and assess the cases and 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 the PPSC with the following reasons and implications:

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1. Needs analysis will be conducted prior to the revision of the course, which entails in-depth study and allocation of resources; 2. Extending and intensifying the investigation module of the course will require academic reforms to suit the required entry level of competency; 3. Crime resolution does not end in investigation, hence a basic course on detective operations and management has to be integrated into the curriculum, which will have academic implications as well; 4. Re-engineering of the course may be delimited by available resource speakers, trainers and even professors, including the compensatory package for these academic professionals; 5. PSBRC is a basic course for new recruits. Revising it would also implicate further revisions in all related courses offered by the PPSC for advanced learning and training, especially for those who are already uniformed personnel 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 the expected learning outcomes this may be delimited by the available facilities, professors / trainers and other required academic resources; 7. The re-engineering will definitely take an extensive period of time from needs 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 Integrated Transformational Program of the PNP, requiring a close coordination with the PNP DIDM and Training Service. Nonetheless, the re-engineering of the PSBRC, alongside all its implications, would have the following positive impact in the long run, to wit: 1. It will strengthen the entry level of the police force with the minimum required competence and aptitude; 2. As the new recruits would possess better skills and knowledgeability, the PNP may start providing them with work-related training programs aligned to the ITP, leading to a progressive structure, in the future, able to manage criminal cases; 3. If the revised course and its implications will produce the expected outcomes, 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 an internal issue; and 3. Limitation of resources, since this option will definitely has to be supported and sustained with a huge budget until its full implementation. Option 4: Institutionalize a Comprehensive, Ladderized and Hierarchical Training 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 be programmed according to the competency needs of the PNP personnel and aligned with the current ITP;

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3. It will lead to the development of a competency-based continuing professional education for investigators and detectives; 4. This will not take an extensive length of time since the PNP already has a unit dedicated to its development, thus, quick actions and assessment integral to this training system will aid in faster resolution of crimes leading to a significant increase in the conviction rate; 5. The ladderized and hierarchical form of the training system will lay the foundation for a career path in the field of investigation and detective management, providing professional growth and corresponding appreciation in the compensation package; 6. Once institutionalized, the training system will be sustainable amidst changes in the leadership of the PNP since the development of its courses will include progressive tools and techniques that will allow a keen foresight on 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 ground on 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 will be practically put in place in the resolution of crimes; and 9. Having an internal institutionalization of a comprehensive training system would raise sophistication in the image of the PNP, attracting more recruits, acquiring public approval, and eventually fulfilling its two main functions all summed up to a credible, reliable and efficient PNP structure, contributing to socio-economic growth and socio-political stability.

VII. OBSERVATIONS AND RECOMMENDATION


Bearing in mind the main crisis discussed in this inititiative, among the proposed optional solutions, it is highly recommended to institutionalize a comprehensive, ladderized and hierarchical training system to address the apparent general lack of competency amongst PNP investigators and police detectives, in order to efficiently and effectively resolve crimes, leading to progressive and significant raise in the conviction rate. Key areas for consideration of the recommended solution are: 1. Needs analyses regarding competency requirements in various levels must be 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 to have a keen foresight on the future of investigation and detective management in the country; 3. The training system must be ladderized and lay the grounds for a career path that provides professional growth and corresponding salary emancipation; 4. Temporary incorporation of leveling-off study programs to acquire the prerequisites 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 target participants;

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6. All investigative and/or detective positions should require corresponding courses in order to prepare the police force to be responsible and accountable when they occupy such positions based on the functional structure of the Investigation and Detective Offices across the nation; 7. Existing or precedent Memorandum Circulars or directives should be reviewed 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; and 9. 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 the detailed 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 to formulate this. 2. The Consultation Team shall organized Technical Working Groups (TWGs) in designing and developing the curriculum per level, in relevance to the PNP functional set-up: a. For PNCOs: PO1 to PO3 PO3 to SPO2 as investigators of the cases follow-up investigation and man-hunting and arresting of suspects as supervisors of investigators and detectives as Chief of stations investigation section as Chief of investigation sections in provincial, district police offices, CIDG provincial offices as chief of Regional and National IDM Offices

SPO3 to SPO4 b. For PCOs: PInsp to PSInsp PCInsp to PSupt PSupt to PCSupt

3. Program of Instructions (POIs) per curriculum must be developed, along with Trainers Manuals, corresponding Lecture Materials and Assessment Tools. 4. Consultation Team, thru the TWGs, to design POI of various specialized courses, 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 eligibility accreditation. 5. Training of pre-identified Trainers must be set-up, with a Feedback Analysis Tool. 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 manner until 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 the SIDD of the PNP NHQ.

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Assessment / Review Metrics


1. 2. 3. 4. 5. Feedback Analysis Tool Assessment Tools for Learning Outcomes particular to each course Periodic Performance Evaluation (competency based) Periodic Management Evaluation (competency based) 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 Surveys 8. Institutional Recognition (the training system has been institutionalized)

Budget Allocation
Based on the foregoing and the current fees for training program, the PNP would need to invest at least P7,000 per capita cost per trainee, and considering the following cost implications: 1. Working Fees for the Consultation Team 2. Working Fees for the Technical Working Groups 3. Allocation for the Training of Trainers 4. 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/or criminal incidents, rather due to the staggering number of unsolved cases. The main crisis looming behind this low conviction rate in the Philippines is essentially the general lack of competency in investigation and detective management among the current PNP police force. This has a profound impact on the operations and management of the PNP structure down to public perception. Hence, this must be addressed in the most appropriate and systematic way, considering relevant issues surrounding the crisis, wherein the criteria for recommendation must be based. Criminal investigation and management of cases are significant integral part of the crime 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 longer be measured by the mere identification of suspect and filing of cases in courts but up to the conviction of the suspect/s involved. These premises entail a thorough review of why the conviction rate remains low with relevance to the conduct of resolving crimes. Crime resolution, being one of the two main functions of the PNP, should now be given full attention, reviewing and analyzing the basic requirements for its efficient and effective implementation. This points to the fact that apparently, 74.8% of the PNP personnel designated as investigators vis--vis their investigative positions do not have comprehensive training in investigation and detective management, almost across the ranks from PNCOs to PCOs.

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To directly avert this situation and to come up with a sustainable and progressive plan, it is highly recommended to develop a comprehensive, ladderized and hierarchical training system that must be institutionalized in order to provide longlasting solutions even to the issues surrounding the main crisis. This recommendation is expected to progressively and significantly improve crime resolution, thereby raising the conviction rate. It will also provide a career path for investigators and detectives, as their competency levels are improved. Further, as it addresses one of the main functions of the PNP, it becomes an utterly relevant undertaking based on the ITP. Moreover, it will build up a public image of a truly credible, reliable, efficient and functional PNP.

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IX. REFERENCES
PCI Manuel L Santos, Jr., Oct 2007, Assessment of PNP Detective School in Camp Crame: Its Implication for PNP Job Performance. Chief, PNP ApprovedMemorandum, 6 Aug 2010, Conversion of Criminal Investigation and Detective Development Course (CIDDC) to Criminal Investigation Course (CIC) and its Conduct at the Police Regional Offices. Chief, PNP ApprovedMemorandum, 5 Nov 2010, Investigative Training Programs for the Line Officers of the PNP. European Union Philippines Justice Support (EPJUST) Program Review, 10 Dec 2010, Final Report on Extra-Legal Killings (ELK) and Enforced Disappearances (ED). NAPOLCOM Resolution 97-032, 24 Feb 1997, Enhancing the Investigative Function of the PNP through the Implementation of an Investigation and Detectives Management Program. PNP-NHQ Letter of Instruction 01/11, 17 Jan 2011, Criminal Investigation Course (CIC) PNP Detective School, 1996, Criminal Investigation and Detective Development Course (CIDDC) Program of Instruction (POI). PNP-NHQ Memorandum Circular No. 2005-009, 7 Jul 2005, "Institutionalizing a System of. Investigators and Detective Eligibility Accreditation (IDEA) through the Creation of an Investigative and Detective Eligibility Accreditation Board". PSSupt Napoleon R Estilles, et. al., Oct 2002, Doctrine on Institutionalizing Standards for the Selection and Accreditation of PNP Investigators. PSupt Asdali Abah, et. al., Jan 2004, Doctrine on the Assignment of Police Investigators 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 Training Courses for COPs. PNP-PMO, 2010, PowerPoint Presentation on the Gains of the Integrated Transformation Program (ITP) of the PNP. SIDD-DIDM, PNP, 2010, Criminal Investigation Course (CIC) Program of Instruction (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.

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