A STUDY ON A PROPOSED REORGANIZATION OF THE HEADQUARTERS OF THE PHILIPPINE CONSTABULARY ThosisfocthobognooIMS. MICHIGAN STATE UNIVERSITY CICERO CAMPANA CAMPOS 1960 M1!IIIIIIIIIMLIIIIIIIW“WI LIBRARY Michigan State University \ I v v _4 _’ 6 - A A STUDY ON.A PROPOSED REORGANIZATION OF THE HEADQUARTERS OF THE PHILIPPlNE CONSTABULARY By Cicero Campana Campos AN ABSTRACT Submitted to the College of Business and.Pub1ic Service Michigan State University in partial fulfillment of the requirements for the degree of MASTER OF SCIENCE Department of Police Administration and Public Safety l CICERO CAMPANA CAMPOS ABSTRACT By expressed.provision of law, the Philippine Constabulary was created in 1901 and designated as the national police force of the Philippines. Over the years, however, it has been employed as a mili- tary organization because the government found this type of organization most expedient in combatting banditry, brigandage, and outlawry in the years prior to World War II and the communist-inspired dissidents since World war II. The evident incompatibility of the organizational struc— ture of the Philippine Constabulary to its primary fUnction makes it essential that a change of structure be effected to make the Constabulary more responsibe to the role it is to pursue - that of a law enforcement agency. The purpose of this study is to examine the present organization of the Headquarters of the Philippine Constabulary, evaluate its defects, and present recommendations for its reorganization by way of improvement in planning, coordination, efficiency, and control within the organiza- tional structure. Following a chapter which introduces the history and culture of the Philippines and the evolution of the Philippine Constabulary, the first phase of the study is concerned.with the present organization of the Headquarters. Emphasis is placed on its merits and.peculiarities and the concept of a general staff organization, which is the basis of its organization, is highlighted. The present organization is then evaluated and its weaknesses are noted and discussed. Essentially, the organization is defective as a consequence of a failure to apply some of the sound principles of 2 CICERO CAMPANA CAMPOS ABSTRACT organization. Some of these defects include: an overlapping of re- Sponsibilities, an overlapping of functions, a waste of manpower, multi~ ple dispersion of functions, a broad Span of control and the failings of the general staff. Based upon a fundamental knowledge of both military and police organization, a recommendation for reorganization is proposed using the underlying principles of sound organization, good police practices and policies observed in some exemplary police departments, and common sense. Three broad proposals include: The dissolution of the general staff; a top level reorganization of the Headquarters of the Constabulary; and a shift from the general staff to a functional organization. In order to implement fully the above—mentioned proposals, some legal steps must be undertaken which would be embodied in legislative action or executive order. Only a broad outline of these legal steps is presented as the legal implications of these proposals are not within the purview of this paper. The principal sources of reference materials used in this study were the Philippine Constabulary, the Headquarters of the Royal Canadian Mounted Police, and the Michigan, Indiana, Kentucky, Virginia and Mass— achusetts State Police departments. A STUDY ON A PROPOSED REORGANIZHJION OF THE HEADQUARTERS OF THE PHILIPPINE CONSTABULARY By Cicero Campana Campos A THESIS Submitted to the College of Business and Public Service Michigan State University in Partial fulfillment of the requirements for the degree of MASTER OF SCIENCE Department of Police Administration and Public Safety 1960 ACKNOWLEDGMENTS I should like to express my profound thanks to the Philippine Constabulary for making this period of advanced study possible, at a time when I am in active service as a Captain in the Philippine Con- stabulary. My sincere appreciation to Professor Samuel G. Chapman, my thesis advisor, for his time, effort, and many worthwhile suggestions made during the writing of this paper. My thanks, also, to the other members of the School of Police Administration and.Public Safety, Mich- igan State University, who read, commented and assisted in the prepara— tion of this work. My Special thanks to Captain Juan A..Alger of the Philippine Constabulary, to Miss Florangel Tandoc, and to my brother, Professor Jose C. Campos of the University of the Philippines, who so graciously and cooperatively gave their assistance and counselling in the gather- ing of the data necessary for this study. C. C. C. 12 June 1960 CHAPTER I. OVER THE W " AN INTRODUCTION 9 o o o o u o o o o 0 TABLE OF CONTENTS The Republic of the Philippines . . . . . . . . . The History of the Philippine Constabulary . . . . II. THE PRESENT ORGANIZATION OF THE HEADQUARTERS OF PHILIPPINE CONSTABULARY . . . . . . . . . . . . . The.Armed Forces of the Philippines . . . . . . . The Headquarters of the Philippine Constabulary . III. EVALUATION OF THE PRESENT ORGANIZATION . . . . . . . Defects of the Organization . . . . . . . . . . . Failings Of the General Staff 0 O O I O O O O O O C IV. PROPOSED REORGANIZA'IION OF THE HEAIXQUARTERS OF V. .A BIBLIOGRAPHY . . . . . . . . . . . . . . . . . . . . . . . . . APPENDIX.A. APPENDIX B. APPENDIX C. APPENDIX D. THE PHILIPPINE CONSTABULARY . . . . . . . . . . . . Dissolution of the General Staff . . . . . . . . . Top Level Reorganization . . . . . . . . . . . . Functional Organization . . . . . . . . . . . . . . A Comparison of the Proposed Reorganization of the PC with other Federal and.State Police Agencies. SUMMARY OF‘THE LEGAL STEPS NECESSARY FOR THE IMPLEMENTATION OF THE RECOMMENDED REORGANIZATION 6 Executive Order No. ll . . . . . . . . . . . . . Commonwealth Act No. 88 . . . . . . . . . . . . . Commonwealth Act No. 3&3 . . . . . . . . . . . . Executive Order No. 175 . . . . . . . . . . . . . PAGE 11 25 25 30 AB A9 55 59 61 62 65 81 89 9b 96 97 100 103 CHAPTER APPENDIX E. APPENDIX.F. APPENDIX.G. Executive Order No. 21 Executive Order No. 308 Executive Order No. 389 LIST OF TABLES TABLE I. Organization of the Headquarters of the Philippine Constabulary . . . . . . . . . . . . . . . ...... II. Proposed Organization of the Headquarters of the Philippine Constabulary . . . . . . . . . . . . . . . PAGE CHART I. II. III. IV. LIST OF CHARTS Present Organization of the.Armed Forces of the Philippines . . . . . . . . . . . ... . . . . . . . . Organizational Chart of the Philippine Constabulary . Present Organization of the Headquarters of the Philippine Constabulary . . . . . . . . . . . . . . . Proposed Reorganization of the Headquarters of the Philippine Constabulary . . . . . . . . . . . . . PAGE 26 29 3h 6h CHAPTER I OVER THE YEARS - AN INTRODUCTION I. THE REPUBLIC OF THE PHILIPPINES .Any study of the Philippine Constabulary would require that one becanas familiar with the set—up of the Republic of the Philippines. The Republic of the Philippines - A Capsule Summary Familiarization with the Philippines would include an awareness of its geographical, cultural, and political structure. Geography. The Philippines, often called the "Pearl of the Orient", is a group of 7,107 islands, stretching from the northern tip of Borneo on the south, to the southern tip of Formosa on the north.1 The islands form a sprawling triangle approximately 1,152 miles north-to-south, and 688 miles east—to—west at its base. The country lies between 21 degrees 20' and h degrees 30' north latitude, and 116 degrees 55’ and 126 degrees longitude. It stands out like a pendant of pearls on the delicate necklace of islands adorning the throat of East and Southeast Asia. Within its 115,600 square miles, the country holds a world of intense interest to every lover of things unique, historical and human. Tropically situated, the country enjoys a moderately warm Climate with many'pleasant days followed usually by cool, balmy nights. —_ 1Department of Commerce and Industry, Phili ine Indust and8 12293. (Manila: Board of Tourist and Travel Industry, I9§65, p. 13 . 2 There are only two seasons of the year - dry and rainy. The rainy sea- son begins in June and lasts until November. The rains are rarely con- tinuous and are usually interspersed with days of pleasant, sunny weather. December and January are the coolest months while May and June are the months of flowers and "fiestas". The old or traditional capital of the Philippines is Manila; the official capital is Quezon City. Manila is a city of contrasts where the ruins of the old Spanish town stand side by side with modern business structures. The city, inhabited by 1,200,000 people, is an intriguing blend of the old and the new; the crossroads of eastern and western culture. Quezon City, a new and modern city in the suburbs of Manila, replaced the latter as the official capital on July, 19h7. However, most of the offices of the national government still remain in Manila. The country has a population of about 23,000,000 people, and is divided into three geographical divisions.2 Reading north to south, the divisions are Luzon, the biggest and most populated island; Visayas, a group of islands in the central portion of the archipelago; and Mindanao, the second largest island which is often referred to as the "land of promise" because of its wide virgin area. Politically, the country is subdivided into fifty—three provinces, each having its own capital, provincial government and constituent municipalities. Map I illustrates the geographical features of the Philippines. 2The World.Almanac and Book of Facts for 1959, (New York: New York World-Telegram, 19597: p. 378. m Hv WUZ.>OIA~ 343m . MAP OF THE 9 Q BABUYAN ISLANDS ,0 PHILIPPINES L, p V O (ABRA , ’__, \ ’ /.- / ‘L . II MT. ’ IL COS \"PPOVINCE: UR .‘ ,’ ISA BELA I /\ mi" .5 #309qu NUEVA if VISCAYA \ \ / // ZAMBAL ES Egggpmr ’ N ‘. I ISLAND KO , TEL LLO O . 1°“ . _ t ‘°° . , 5 ' O V 19$ Q, PAVE. x6. \ «\CA MIRINES NORTE QC. O9 “4 ‘1‘ 3 )\~. m LL] 1’ O 4/% O \ Q C Q MARIN u- ,1, CA A'INES INDORO p Z V.--’ - :ILOILO zomboong. " M cfiy I v a?) i 1 . ' ‘ BASILAN IS. ‘ (I J‘ . “. \~‘ 0 00 “ o castes? . 0 I a O I 000 . DO BORNEO 43953“ SULU PROVINCE 0° 9 " C E L E B E S Culture. The Filipinos are descendants of Malays who were of Hindu and Mongol ancestry. The Malays, thousand of years earlier, wended their way south through Indonesia and thence north to the Philip— pines in sailboats called "barangays". The Malay migrants were instru- mental in fostering a race tinged with Indonesian blood. After the Malays, Chinese traders sailed to the islands and many of them remained and.were assimilated by the Malayan and.Indonesian ethnic groups. In 1521, Ferdinand Magellan discovered the Philippines for the western world. In so doing, he found a culture that flourished with Indian and Chinese influences. Spain introduced the virtures of Christ- ianity to the existing culture and this religious concept has continued in the Philippines to the present time. The old Malayan culture, still vital to the lives of the people, the Christian culture of medieval Spain overlaid upon this Oriental background, and finally, the progressive democracy of America, have brought a unique evolution. While geographically, the Philippines is Situated in the Far East, culturally it belongs principally to the west. The Philippines is where the Orient blends with the Occident and one finds an unusual link between the New and OldWorlds.3 The Philippines is the Orient's "melting pot" where all races and nationalities mingle with the original Malay stock. The present inhabitants, known as Filipinos, are difficult to classify according to any primary ethnic group. They are a mixture of the Mongoloid, 3Department of Commerce and.Industry, Philippine Industry and Trade, (Manila: Board of Travel and Tourist Industry, 1956), pp.TI38—lw3. Caucasoid and.Negroid races. As a people, the Filipinos are reputed to be hospitable, kind, and gracious; possessed of a light—hearted dis- position. The Filipinos traditionally please visitors, especially foreigners. As a result, Filipino hospitality is known throughout the world! The national language is Tagalog but English, Spanish and Tagalog are the official languages. English is used in business and commercial transactions everywhere in the Islands. Spanish is widely spoken eSpec- ially by the elder generation. The Filipinos have 87 distinct dialects but only five are widely used. - The Philippines is the only Christian country in the Orient, 93 per cent of all residents of the country following the dogma of Christianity, Of the remaining 7 per cent, many are Muslims and the rest are pagans. Most of the Filipinos follow the Roman Catholic doc— trine while the minority pursue the Protestant belief or are Aglipayans or Independent Catholics.4 Political History. The Philippines is a republic, the national government, being founded upon democratic principles like the United States of America, consists of three major branches: executive, legis— lative, and judicial. The American regime, which lasted hB years from 1898 to 19h6, profoundly influenced the development of the political institution in the country. For example, the Constitution of the Philippines is pat— terned after that of the united States. It contains a comprehensive 4Ibid., p. 1&0. 6 Bill of Rights, adheres to the principle of separation of powers, and recognizes that all governmental authority emanates from the people in whom sovereignty resides. I For several years prior to 1898, however, there were many storied years in Philippine history. These began with the voyage of Ferdinand Magellan in 1521. Although Magellan, who sailed under the flag of Spain, discovered the Philippines for the West, the name "Philippines" was given to this group of islands some years later by another Spanish navigator, Villalobos, in honor of Prince Philip of Spain. Still later, an expedition under Legaspi and a missionary named Urdaneta established the first Spanish settlement in the country. That the Philippines is. the only Christian nation in the Orient is directly attributable to the zeal of these early Christian missionaries. While Spain was an excellent religious colonizer, she was a poor governmental colonizer. She exploited the resources of the country and abused the people to the limit that precipitated the growth of discontent. Such despotic colonial policy ultimately fanned the flames of national- ism which led to a series of rebellions similar to the patterns of breakdown of British colonialism in America. Most of the great names in Philippine history were made as the Spanish regime faltered and disintegrated. During these times, disillusioned Filipino patriots led a series of rebellions in an all-out effort to rid their shores of Spaniards. It was during this period when Dr. Jose Rizal, a Filipino Who became renowned as “the Pride of the Malay Race”,'wrote two immortal books, the Noli Me Tangere and the El Filibusterismo which describe 7 the social ills and injustices committed by the Spaniards in the Philip- pines.5 These books are considered as Spanish literary gems. Dr. Rizal was an idealist who did not believe in violence; he advocated reforms and education of the masses as opposed to revolution. Paradoxically, this man of peace was executed for treason by the Spaniards. This act triggered the Revolution of 1896. While the revolution was in progress, another event was taking place far from the Philippines. The United States declared war on Spain in 1898 because of the mysterious destruction of the battleship "Maine" in the harbor of Havana, Cuba. Soon an American fleet under Commodore Dewey was diSpatched to the Pacific and engaged in battle against the Spanish.Armada in Manila Bay. Admiral Dewey defeated the Spanish fleet and placed Manila, which at that time was still under Spain, under seige. .An armistice, known as the "Treaty of Paris of 1898", was signed by the United States and Spain, in which Spain ceded the Philippines to the United States. Concurrent with the treaty, the Filipino rebels had occupied almost the entire country except Manila, and.Genera1 Aguinaldo, the revolutionary leader, proclaimed the birth of the first Philippine Republic in January, 1898.6 Shortly after the American occupation of Manila, friction arose between American and Filipino troops. The Filipinos, tired of foreign 5Leandro H. Fernandez, The Philippine Republic (New York: Columbia university, 1926), p. 10. 6Ibid., p. 23. domination for three and one-half centuries, fought the.Americans to preserve their hard-earned independence. However, after a futile fight against superior American arms and with a promise of self~ru1e by peaceful means, the last Filipino “insurrecto” surrendered in 1902. U. S. military government ruled the Philippines until 1907. At that time a civil government was established under the direction of the Philippine Commission. The Commission was headed by the Honorable William Howard Taft. The Commission was superseded in 1916 by the First Philippine Assembly. Members of the Assembly were elected by the people who chose Manuel L. Quezon as their leader. In 1916, the Congress of the United States passed the Jones Act which promised ultimate independence for the country at a later date. On November 15, 1935, the Commonwealth of the Philippines was inaugur- ated. This was a semi-autonomous government established to bridge a ten-year preparatory period prior to the Philippines’ achieving complete independence. Manuel Quezon asserted his popularity and was elected the first President of the Philippine Commonwealth. In the mid 1930's, war clouds hovered the Orient as Japan invaded the Chinese mainland. After a successful campaign in China, Japanese aggression openly asserted itself on December 8, 19h1, with a simultan— eous attack on all American possessions in the Pacific including a landing of Japanese Imperial troops on Luzon. Manila and the naval base at Cavite were devastated and fell to a rapid Japanese advance. But many Filipino and.American troops stubbornly held the Japanese at the Bataan Peninsula up to.April 9, 19h2, and bravely clung to the 9 island bastion of Corregidor until May 6, 19h2.7 Sir Winston Churchill, then British Prime Minister, in a speech before the House of Commons during these dark hours of democracy, paid tribute to the gallantry of the troops that defended Bataan and Corregidor. These defenders, who suffered the horrors and inhumanity of the "Bataan Death March" and other hideous tortures as Japanese prisoners of war, upset the Japanese timetable of aggression and earned for General Douglas MacArthur valuable time to reorganize his armies in Australia. General MacArthur's legions eventually took the offensive and, true to his promise to the Filipinos, returned to liberate the Philippines in l9hh. A Japanese puppet government ruled the Philippines during the four years of Japanese occupation. The Philippines' resistance movement, however, moved to the jungle and remained active. The Allies were able to provide the guerrillas with arms and ammunition by use of submarines. Consequently, only the major towns and cities of the Philippines were actually occupied by the Japanese. Many civilians left the towns and fled to the hills and farms. Even though life was rough under primitive jungle conditions, they preferred freedom. After General MacArthur's return in 19hh, the Japanese fought for every inch of Manila's ground. The conflict left grim reminders of war and fostered more brutal Japanese atrocities. Men, women and children were massacred as the Imperial Japanese forces, suffering defeat after defeat, retreated. The Japanese made a last-ditch stand in the mountain flastneses of northern Luzon but the liberation forces and the organized 7Office of the President, The Philippines, a Handbook of Infor- mation, (Manila: Philippine Information Agency, 1956). 10 guerrillas drove them out of their hideouts. In June, 19h5, General Yamashita and the members of the Japanese High Command faced trial, were sentenced, and soon hanged for their war atrocities. In accordance with the pledge made by the United.States, the Philippines attained independence on July A, 19b6, after L8 years of economic and political tutelage under the American flag.8 Summary. While its history as an independent nation is brief, the Philippines has advanced and grown in stature deSpite serious prob- lems. It has survived one major economic crisis and has almost com— pletely subdued a Communist-led guerrilla movement which sought to overthrow the government. Today, the Philippines enjoys a responsible role in the United Nations, assigns tr00ps to fight under the United Nations Flag, and is watched by the colonial peoples everywhere in the Far East as an example of democracy in action, and a bulwark against exploitation by Soviet imperialism. 8Ibid. 11 II. THE HISTORY OF THE CONSTABULARY The Philippine Constabulary was created in 1901 as the law en- forcement arm of the ciyil government.9 The original complement of the Philippine Constabulary consisted of 68 American army officers. Grad— ually, as the organization assumed additional tasks, the Constabulary's strength was increased. Concurrent with the transfer of civil govern— ment from.American to Filipino direction in 1935, so, too, the Constab— ulary was gradually being directed by Filipino officers. This transition was complete when a Filipino assumed the top supervisory position by being named the Chief of Constabulary. Mission of the Constabulary The Philippine Constabulary is an instrument of government design- ed to secure internal peace and order throughout the nation through a dedicated effort against those who seek to undermine the rule of law of the land and the principles of righteousness. Its only reason for being is service to country and people through the fearless, unpreju— diced and.uncompromising enforcement of the law. It will always remain subordinate to civil authority for it is only an instrument of public trust and popular will. Ever since its creation, the Philippine Constabulary has served as an armed police force charged with traditional police statutory functions. It was charged with quelling brigandage, outlawry, banditry, and piracy whichwere prevalent in many parts of the country in the early 9Charles Burke Elliott, The Philippines (Indianapolis: The Bobbs Merrill Company Publishers, 1917), pp. 17h-175. 12 It was also charged with preserving peace and order, prevent- 1900's. ing crimes and enforcing laws, and, to some extent was involved in administering medical assistance, supervising public construction pro— jects, and conducting census activities. The latter non-police duties are presently performed and within Constabulary ranks are referred to as the ”left-hand" effort. Over the years, the Philippine Constabulary has performed countless other mi3cellaneous duties, ranging from hunt- ing outlaws to safequarding forests. It has always been vested with such responsibility even during those periods when it was merged with or absorbed by the Armed Forces of the Philippines. The Philippine Constabulary is concerned with the prevention and suppression of disturbances which usually are beyond the normal capabilities of the armed forces. In this connection, the law provides that it is the duty of the Chief of Constabulary to suppress riots, insurrection, brigandage, unlawful assemblies and breaches of the peace and in this manner to maintain law and order in the country. Besides maintaining peace, law, and order, the Philippine Con- stabulary discharges the following responsibilities which are directly or quasifipolice in naturexlo 1. Licensing and safekeeping of firearms and explosives. 2. .Assisting and insuring the effectiveness of the local police. Carrying out home defense in rear areas and such other ser- 3. vice as the Chief ofIStaff of the.Armed Forces may direct during emergenoy. 906 19Revised.Administrative Code of the Philippines, Sections 877- 13 A summary description of each of these tasks is presented below: Firearms and Explosives. Being dangerous items, firearms and ex- plosives are properly subject to control by the police in order to protect life and property and to prevent crimes and disturbances. Con- sequently, the government seeks to regulate their manufacture, sale, transfer, possession and use through the efforts of the Philippine Constabulary. According to Philippine laws, only the Philippine Constabulary, being the national police, has the authority to issue firearms licenses and take charge of storing those weapons which could not be lawfully possessed by private citizens. Local and other police agencies,however, assist the Philippine Constabulary by processing applications for fire— arms licenses, by verifying them locally, and by collecting the arms from individuals upon expiration or termination of their right to possess them. At present, the Constabulary is faced with a critical problem with reSpect to firearms which is more complex and dangerous than licensing and safekeeping. Illegally possessed firearms still abound in the country and many unfortunately are channelled to the criminal element. Caches of explosives, often left from the dark days of war, lay hidden and provide dynamite which some persons use for illegal fishing. Obviously, the situation calls for more vigorous law enforce— ment efforts involving extensive patrolling, arrests, searches and siezures. 1h Assisting Local Police. The Constabulary was not and is not intended to police every town and city. Instead, such re3ponsibi1ity at the local level lies with the local police and for this purpose there should be an efficient and reliable local police force. However, the job of rendering the local police efficient and effective belongs to the Constabulary. For this purpose, the Chief of Constabulary is required by law to prescribe rules for the government of the local police, examination for admission,_uniforms and equipment.11 In this sense, provincial commanders of Philippine Constabulary provincial commands are required to inspect local police units in their respective jurisdictions regularly, inquiring into their efficiency, general con- duct, and.problems affecting peace and order. Provincial commanders have to c00perate with provincial governors and other local officials, acting as their chief advisers and coordinators on police matters. Lastly, the Philippine Constabulary assists local police forces in the ways of training, arming, and providing scientific aid and assistance in the apprehension of criminals and in the restoration of peace and order. Home Defense in Rear Areas. In time of emergency, the Philippine Constabulary may be employed to perform home defense responsibility in rear areas and such other service as the Chief of Staff of the Armed Forces of the Philippines (AFP) may direct. 60 11RevisedAdminstrative Code of the Philippines, Sections 8&3, 22 ‘67 o 15 The Organizational History The Philippine Constabulary was initially established on July 18, 1901, and the force was formally organized on August 8, 1901. Cap— tain Henry T..Allen of the 6th United States Cavalry and Captain David J. Barker of the 26th United States Infantry were designated as chief and assistant chief, respectively, of the "khaki and red" unit. The provisions of Act No. 175 designated the Philippine Constabulary as “the armed police force of the government of the Philippine Islands, established and administered under the general superviSion of the gover- nor general for the purpose of maintaining peace and order, preventing crimes and enforcing laws."12 Under the provisions of Act No. 175, the country was divided into four Constabulary districts to promote effective supervision and effect decentralization of administration.13 Each district was under the command of a district chief. The provinces within each district were divided into sections, with each district forming one administra- tive unit under a senior inSpector. In 1903, the four districts policed by the Constabulary were redefined after more areas were brought under the civil government. The addition of more territory brought about the assignment of addi- tional united States.Army officers to the Constabulary service. There were then five Constabulary districts which included the islands of Mindanao and Sulu. 12William Cameron Forbes, The Philippine Islands (Cambridge: Harvard University Press, l9h5). 13Elihu Root, The Military and Colonial Policy of the United States (Cambridge: Harvard University Press, 1916), pp.‘256:266. 16 Initial Improvements. One of the first accomplishments of the Philippine Constabulary was the establishment of the Philippine Con— stabulary Officers School, known today as the Philippine Military Acad— emy.14 .Also, the Philippine Constabulary Band was created around 1903. This musical organization gained world fame within a few years. Significant improvements were also made shortly after World.War I. These included: (1) increasing the strength of the organization to about six thousand officers and men who, except for the Chief, were one hundred per cent Filipino; (2) in accordance with a master plan, the country was divided into six Constabulary districts, each with a regiment consisting of two battalions, with exception of Mindanao, whose regiment consists of three battalions; and (3) organizing the General Reserve Troops at the Headquarters of the Philippine Constabulary as a reserve force that could be rushed to any part of the country in case of emergency. The Revised Internal Organization. The inauguration of the Philippine Commonwealth government on November 15, 1935 has a profound effect on the organization of the Philippine Constabulary. It brought considerable flux in the status of the Constabulary. For example, on December 31, 1935, the Philippine Constabulary became the lst Regular Division.15 Less than one year later, the lst Division was inactivated 14Charles Burke Elliot, The Philippines (Indianapolis: The Bobbs Merrill Company Publishers, 1917), p. 176 15Office of the President, Commonwealth of the Philippines, Ex- ecutive Order No. 11, Designation of the Chief of Sta_ff and Transfer— ring the Philippine Constabulary to the Army of the Philippines (Manila: Bureau of Printing, 1936), Annex.A. l7 and its personnel became the nucleus of the Philippine Army. Soon, with the Constabulary assimilated by the Army, a new State Police Force was created which was given a mission similar to that formerly carried by the Constabulary.16 The new force, however, failed, and on June 23, 1938, the Philippine Constabulary was reconstituted and reassigned its former mission. Organizationally, it was placed under the control of the Department of Interior. The Combat Organization. Less than a year after the reconstitu- tion of the Philippine Constabulary, the imminency of war pervaded the Orient and the Philippines. Sensing the gravity of the threat, Presi- dent Franklin D. Roosevelt proclaimed a state of nation emergency in May, l9hl. In July, l9h1, the United States Forces of the Far East (USAFFE) was organized and the Philippine Constabulary personnel were trained as combat units.17 The lst and 2nd.Regiments were formed out of the General Service Group at the Headquarters of the Constabulary and the 3rd Regiment was organized in Mindanao. These regiments, in- ducted into the USAFFE shortly before war broke out, immediately unders took security missions in Manila and the suburbs. The bitter hostilities on the Bataan Peninsula took a heavy toll of Constabulary soldiers. .After the surrender, some survivors were in- carcerated at the Capaz concentration camp while others managed to ”First National Assembly, Commonwealth of the Philippines, Commonwealth.Act No. 88, An.Act to Provide for the Organization and Maintenance of a State Police Force (Manila: ‘Bureau of Printing, 1936).Annex B. l7Headquarters Philippine Constabulary, Forward, PC.Anniversary Brochure, (Quezon City: HPC Press, 1956), p. 9. 18 escape Japanese captivity and joined the resistance movement. Many Constabulary soldiers figured.promdnently in the resistance movement that heroically carried on the cause of freedom for the next four terrifying years. The Philippine Constabulary resumed active service with the Philip- pine Army after the liberation of the Islands. In the Army reorganiza— tion that followed, its personnel became a part of the newly organized Military Police Command (MPC) under the Operational control of Armed Forces in the West Pacific (AFWESPAC). Once again, the Philippine Constabulary lost its identity.18 Just a few days before the granting of independence to the Philippines in 19h6, the NFC was made a section of the Philippine Army. As such, the MPC took the initial action against the Hukbalahaps, a communist-inspired dissident group dedicated to overthrow of the govern— ment. Even though the NFC had a force of 12,000 officers and men, it proved ineffective in combat. Consequently, it was deactivated in 19147.19 In its place the Philippine Constabulary was reconstituted and.plnced under the control of the Department of Interior as an or- ganization separate from the Army. Merger with the Army. Because of the mounting dissident activ- ity in Central Luzon, led principally by the Huks, the Constabulary was separated from the Philippine Army on January 1, 19h8, and undertook the task of maintaining peace and order.20 Nevertheless, communist- “Ibid. 191mm 2°Ibid. 1? inspired dissident activity intensified, and the Philippine Constabulary was again merged with the Armed Forces to meet the serious situation. The Philippine Constabulary became one of the major commands and all Philippine Constabulary units were placed under the operational control of the commanding general of the Armed Forces of the Philippines. Ten.Philippine Constabulary battalion combat teams were organized trained, and assigned for field duty. In a series of intensive opera~ tions, the Huks were forced to withdraw to remote areas or disband. As a result, the Huk movement became ineffective and token in nature. The campaign against the Huks saw its climax under Brig. General Manuel F. Cabal (present Chief of Staff of the AFP) whose term also saw the Philippine Constabulary assume full reSponsibility for securing the internal peace and order of the country as the Army undertook to build up the reserve force. The late President Magsaysay, as Secretary of National Defense, reorganized the.Armed Forces and the Philippine Constabulary became one of the Armed Forces’ three major services. In 1959, General Isagani Campo, presently Chief of Constabulary, fostered several significant steps towards gaining organizational inde- pendence fromtheArmy.21 The outstanding step was when the military area commanders turned over control of the Philippine Constabulary Zones to Philippine Constabulary Officers. Ppesent Geographical Organization. For purposes of effective supervision and control, the country is presently divided into four Philippine Constabulary Zones as shown in Map I. These coincide geo- graphically with the Army’s four military areas. 'The head of the ZllHeadquarters Philippine Constabulary, Philippine Constabulary 58th Anniversary, (Manila: Community Publishers, Inc., 1959), p.13. 20 Constabulary is designated as Chief of Constabulary and given the rank of Brigadier General as expressedly provided for by law. Each Philip- pine Constabulary Zone has its commanding officer with the rank of full colonel and a Zone headquarters. Each Philippine Constabulary Zone has approximately 15 Provincial commands within it. Each Philippine Con- stabulary Provincial command has one or more Philippine Constabulary companies under its supervision. The organization of the Philippine Constabularyfisshown in Chart II. Qperations of the Constabulary Initially, the primary mission of the Constabulary was to rid the provinces of the bands of insurgents, known as "insurrectos" who remained at large after the termination of the Filipino-American War. In succeeding years, as the limits of operation were expanded to in— clude such non-Christian regions as Mindanao and Sulu, the mission of the Constabulary was broadened to include stopping murders, slavery, kidnapping, cattle-rustling, and the suppression of tribal warfare and headhunting among the non—Christian tribes at the mountain fastnesses of northern Luzon. In 1901, its first year of existence, the Constabulary established an impressive record. It killed 67h outlaws, captured 1,837 bandits and dissidents, and seized 1,089 illegally possessed firearms. During the decade between 1901 and 1910, 50 officers and 1,160 men of the Constabulary were fatally injured in action. During the same period, however, the Philippine Constabulary killed h,862 outlaws and captured 11,070 others. 22 221b1d., p. 7. 21 Despite the proclamation of peace by President Theodore Roosevelt on July h, 1902, the islands of Mindanao and Sulu continued to be under military rule during most of this period because the people of these regions were still hostile to the government.23 ‘General John Pershing, the governor omeoroland, diSplayed utmost patience in appealing to the reason of the Moros and avoided recourse to arms. There was indication that the pacification campaign was making progress and the Moro was beginning to assimilate the democratic way of life, when on November 28, 1909, the Constabulary detachment in Sulu consisting of sixteen men, was attacked and almost completely annihilated by a large Moro forces?4 General Pershing, shocked by the incident, issued an order prohibiting the Moros from owning fighting weapons except by government permit. Many Moros surrendered their firearms, but there were those who, in bitter resentment, continued to defy the order. Soon, one thousand Moros, led by a notorious outlaw, Jailani, fortified Bud Dajo, a mountain top which was considered invulnerable. Jailani then sent a challenge to General Pershing to disarm his band. Believing that further negotiations would be futile, a combined United States Army and.Philippine Constabulary force stormed the forti- fication. After five days of bloody fighting, the task force succeeded in killing Jailani and many of his followersimrtthis did not eliminate Moro activities. * 231mm, p. 8. 24Ibid. 22 For many years thereafter, the Constabulary was faced witthoro piracy. The Moro pirates, sailing swift "vintas", invariably inter- cepted trading vessels plying Borneo and.Mindanao and between Visayas and northern seaports looting the cargoes and oftentimes molesting the crews and.passengers. Peace and order prevailed generally in the country from 1911 to l930, however, with the exception of intensified campaign against the tribal warfare that was being waged between the non-Christian tribes THE Nueva Vizcaya, in northern Luzon. This campaign again enabled the Philippine Constabulary to give assistance to the different branches of government. Noteworthngampaigns. The Constabulary came to grips with a new menace in the third decade of its existence — communism. In 1930, the Philippine Constabulary arrested communist leaders for delivering sedi- tious speeches and openly displaying flags with a hammer and sickle on a red background in the plaza of the town of Sta. Rosa in the province of Nueva Ecija. Subsequently, the Communist Party'was outlawed in the country and its leaders were convicted in the courts.25 In 1935, how- ever, President Quezon, as part of his social justice program, pardoned the communist leaders. In Central Luzon, the Constabulary waged.war against some visionary zealots who proclaimed themselves saints, popes, or even "God” and goaded their followers to fanatical excesses including mur- ders.26 In Mindanao, troubles with the Moros raged, with Sulu as the 25Ibid.., p. 8. Z5Headquarters Philippine Constabulary, Philippine Constabulary §§§h.knniversary, (Manila: Community Publishers, Inc., 1959), p. 12. 23 trouble center. Piracy and lawlessness seemed to be endless and major engagement and bloody encounters steadily increased in the annals of the Moro campaign. Prior to the inauguration of the Philippine Commonwealth, the Philippine Constabulary launched two important campaigns: one against the Sakdalista uprising, which occurred in May, 1935; and another against two bandits - Asedillo and Encallado — which began in 19311.27 The first campaign ended in the same year but the manhunt for the two bandits did not end until L. December, 1935. In November, 1937, when the Philippine Constabulary was still under the Army, the Constabulary Division undertook the Cotta Demoli— tion Campaign, a series of actions designed to end Moro outlawry. The campaign ended on January, 1938, with a record of 59 cottas (Moro fort- ifications) destroyed.28 The Philippine Constabulary Regiments that fought in Bataan with the army units figured prominently in many encounters. One of them is the famous Battle of Tuol Pockets.29 After the turn-over of the Philippine Army to the Philippine Government by the Armed Forces in West Pacific (AFWESPAC) on.June 30, 19h6, the Military Police Command (MPC) was placed under the Philip— pine Army (as stated in the preceding discussion, the MPC was consti- tuted by former PC men).30 It was the MPC that took initial action 27Headquarters Philippine Constabulary, Forward, PC.Anniversary Brochure, (Quezon City: HPC Press, 1956), p. 9. zalbid. 29Ibid. 3°Ibid. 2b against the Huks. Later the MPC was inactivated and the Philippine Constabulary was reconstituted as a separate unit from the Army. The Philippine Constabulary then undertook the suppression of the Huk move- ment. It also fought outlawry in Mindanao and after a four month cam- paign in l9h9, two notorious Moro warriors, Kamlon and Binang, sur- rendered together with 300 followers and 150 firearms.31 Within the fifth decade, the Philippine Constabulary had a total of 502 encounters in which 839 Huks were killed, hl2 captured, and L91 firearms were seized.32 The successes of the Philippine Constabulary in its anti—Huk campaign are seen in the much improved.peace and order condition in the country today. This was achieved by its "all—out force and all- out friendship" in dealing with the dissident problem. Summary After 59 years in existence, the Constabulary continues to pursue its two pronged mission of maintaining peace and order and pro- viding maximum assistance to the various agencies of the Philippine government in the implementation of the government's development and socio-economic projects. Literally a "child of battle", the Philippine Constabulary has earned a reputation as an agency which is "ALWAYS OUTNUMBERED BUT NEVER OUTFOUGHT." “Ibid. 321b1d. CHAPTER II THE PRESENT ORGANIZATION OF THE HEMUARTERS OF THE PHILIPPINE CONSTABULARY I. THE.ARMED FORCES OF THE PHILIPPINES The Philippine Constabulary is one of the four major services of the Armed Forces of the Philippines. The other three are the Philippine Army, the Philippine Air Phrce and the Philippine Navy.33 The power of executive supervision and authority over the Philippine Constabulary, which formerly was exercised by the Secretary of Interior, was transferred to the Secretary of National Defense through the Chief of Staff of the Armed Forces of the Philippines. The present organiza— tion of the Armed Forces of the Philippines is shown in Chart I. The Philippine Army The army comprises the land combat and service forces and other units organic to it. It is organized, trained, and equipped primarily for prompt and sustained combat operations on land, specifically to defeat enemy land forces and seize, occupy and defend land area. It has the mission of training, equipping,and organizing all Army reserve units. It develops, in coordination with the other major services, tactics, techniques,and equipment of interest to the Army in field operations.34 330ffice of the President, Executive Order No. 389, Reor anizin the Armed Forces of the Philippines (Manila: Bureau of Printing, 1930?. 3?Article XIV'Section 10(a) Revised.Administrative Code, Philippine Annotated Laws, vo1. II, (Manila: The Lawyers Cooperative Publishing Company, 19Sh). Armed Forces of the CHART I Present Orgonizofi on of THE PRESIDENT OF THE PHILIPPINES THE SECRETARY OF NATIONAL DEFENSE CHIEF OF STAFF ARMED FORCES OF THE PHILIPPINES a the Philippines 26 PHILIPPINE CONS TABULARY PHILIPPINE ARMY PHILIPPINE A I R FORCE PHILIPPINE NAVY 2? The Philippine Air Force The.Air Force includes air combat and maintenance service forces. It is organized, trained,and equipped for prompt and sustained opera- tions in the air and.provides close support to surface forces. It is IreSponsible for the defense of the Philippines against air attacks, to gain and maintain air superiority and to control vital air areas. It develops doctrines, procedures, tactics, techniques, and equipment for operations peculiar to the.Air Force. It furnishes aerial photography for peacetime cartographic purposes, in coordination with other govern- mental agencies.35 The Philippine Navy The Navy includes all naval forces, combat vessels and auxiliary crafts, shore installations, supporting activities, and personnel nec- essary to all the functions of the service. Its mission is to organize, train, equip, maintain and operate naval forces and naval aircraft, in- cluding naval reserve units, necessary to provide water-borne support and assistance required by the Armed Forces of the Philippines in the accomplishment of its objective. It assists governmental agencies in enforcement of laws and regulations pertaining to navigation, immigra- tion, customs revenue, opium, quarantine, fishing,and neutrality in the territorial and contiguous waters of the Philippine Archipelago. It is responsible for naval phases of reconnaisance, antisubmarine warfare, and protection of shipping. It coordinates with other major 35Ibid., Article )CLV, Section 12(a), Revised Administrative Code. 28 services the doctrines, procedures, and naval equipment for joint oper- ations, and doctrines and procedures for amphibious operations.36 The Philippine Constabulapy The four Philippine Constabulary zones geographically outlined in Chapter I are organized for purposes of effective supervision and control. Each Philippine Constabulary Zone has about 15 Provincial Com- mands under its supervision and each of the Provincial Commands has one or more Philippine Constabulary companies under its control. The organ- ization of the Philippine Constabulary is illustrated in Chart II. The Chief of Constabulapy The Chief of Constabulary is the commander of the Philippine Constabulary, He is charged.with maintaining law and order through- out the country, and suppressing riots, insurrection, brigandage, un- lawful assemblies,and breaches of the peace. It is his duty to see that the perpetrators of such offenses are brought to justice.” The Chief of Constabulary is also charged with the management, administration, instruction, and discipline of the Constabulary. He is reSponsible for the selection of the members of the Constabulary and insuring that the agency is supplied with arms, uniforms, and equip— ment and in all respects maintained as an effective instrument for the performance of their duties. 35Ibid., Article )CEV Section 13(a), Revised Administrative Code. 37Section 831, Revised Administrative Code, Philippine Annotated Laws VOl. II, (Manila: The Lawyers Cooperative Publishing Company, 19573. CHART IE ORGANIZATIONAL CHART PHILIPPINE CONSTABULARY 936 ”,064 PHILIPPINE CONSTABULARY ' I HHSB a . I II HI Iv SEPERATE UNITS I PC ZONE PC ZONE PC ZONE PC ZONE L o HPC HQ SVC BN P C 3 PC FORENSIC LAB ~~-—-- . T . 20 CTDET PfiovL PRQv'L PROV'L r PROVL T C G ZONE HQ COMMANDERS ZONE “0 COMMANDERS ZONE HQ COMMANDERS L ZONE, I10 l COMMANDERS P G 8 HQ PC ZONE HO PC ZONE HQ PC ZONE HQ PC ZONE PCCSB HO SVC Co, PCZ HQ SVC Co, PCZ HQ E‘VC Co,PCZ HQ st Co, PCZ PC SDU SIC Co, PCZ SIG Co, PCZ SIG Co, PCZ SIG Co, PCZ PC CAV UNIT DENT DISP II2Ih) DENT DIsp (l3th) DENT DIST (I6ih) DENT OISP (mm SIG 8V C0, HPC MED OISP MED DISP MED DISP MED DISP CONST HOSP CAMP CRAME DENT TMS I4) DENT TMS <4) DENT TMS (3) DENT TMS (5) IOTH DENT DISP MED TMS (5) MED TMS I4) MED TMS (6) MED TMS I8) |l7TH PC Co I42ND PC Co 39 - I4 ‘7 I: 32 I2 22 I2 47 PC Cos. PROV. HQI EL PC Cos. PROV. HO PC Cos. PROV HQ PC Cos _ 29 30 The Chief of Constabulary is appointed by the President of the Philippines through the recommendation of the Chief of Staff of the Armed Forces of the Philippines and the Secretary of National Defense. The appointment is subject to the confirmation by the Commission on Appointments of the Congress of the Philippines. The Chief of Constab- ulary has no predetermined tenure of office and serves subject to re— moval only by the President. Since the Philippine Constabulary is one of the four major ser- vices of the AFP, the Chief of Constabulary cannot be appointed from among the civilian population; he must be a military officer. The usual practice has been that he is chosen from the ranking Colonels and Brigg adier Generals of the AFP and not necessarily from the Philippine Con- stabulary itself. The Deputy Chief of Constabulary The Constabulary has one officer who is designated as Deputy Chief of Constabulary. He is usually the most senior full Colonel in the Constabulary. .As second ranking officer, he assumes control of the Constabulary in the absence of the Chief. II. THE HEADQUARTERS OF THE PHILIPPINE CONSTABULARY The Headquarters of the Philippine Constabulary is located at Camp Crame, Quezon City, in the suburbs of Manila. The Headquarters, being the brain center of the organization, has approximately 139 com- missioned officers, 250 enlisted.personne1 and too civilian employees. The present rank structure and number of positions authorized for each rank in the headquarters of the Philippine Constabulary appears in Table I. n” IImN NN mN mm NN Ne NN NN oN mN N m o maaommccq IWN m NN NN N NN o oN Na d m N m omemHsz Newos .mN ssh no uncNu boN ram .NN o N o m N N N Nmooahoo . 2 m m m N m N oN N N N accustom .NN pcmomuom m N a m N m N m oN N N N modem .NN ocmomnom a N m m N a N m mN N N N NmoNceooe .oN ocmomnow snuNm .m pomomnom N N m e N m N m N N N N hound: .m o m NN N N mN m N NN o m N m -mmwommmww .N N bN cN no bnN .o N N m a N oN N mN N anbamo .m N N N N N m m m m m N N some: .4 NscoNoo N N N N N N N N N N N N NoncstoNN .m N N N N N N N N N N NocoNoo .N Homoeoo N noNonmNum .N smoaon Norm -3 neon ooNNcsa see new >Na >No sag >Na >NQ >NQ No NoNeu so com beN cause an moo oIQ m-o N-o Mic N-o N-o NoNeo sesame McNeo room aNm No venom cN ca. No no No uoNNeo mmaNm_Nammzmo soNuuo ooNNno ooNNmo {I *4 H mqde >m¢45m¢Hm200 MZHALHAHIA mmm9m<50Q4m2.mmH.mO ZOHHSNH2m no mmmao pea PPA .NN Om N m N m N Nmuoauoo .mN mm N N N N N N m N N N N osmomusm .NN . Ncmomnom at N N N N N N N m N N m N Nemom sNN pcmomuom m0 H H N H H H N m H H m HNUHEUUH oOH ocmomnow onuNm .m bcmomnom Q: N N N N N N N N N N aspen: .N mmonmmHz mmN N N m m N m m m N N N N -zco NNHoN .N N NN oN so NmN .o No m N N m N N N m N cNmeacu .m an N N N N N N N N N N .8an .N Noeoaoo mN N N N N N N N N N N N N NcmcobsoNN .m MN NocONoo .m N Homoeoo noNommNum .N com com com com com com com com oNaxm ovum who HMO ooN> Nawoe sm. been use so coo mNm made one can oNcN nuNnNNN -hom seem New name oNcN oNNosm oNNbsm ammo A.ocoov H mdeH 33 The Concept of a General Staff Organization The Philippine Constabulary, although created by law to be a national police body, is fundamentally a military organization. It remains as such because it is one of the major services of the Armed Fbrces of the Philippines. Its Headquarters is patterned after the con- cept of a General Staff organization as employed by the Army. Chart III illustrates this concept diagrammatically.v Under this concept, the staff includes the General Staff, the Special Staff, and the Personal Staff. To understand this concept, it is necessary to be familiar with the procedures and functions of the staff. Staff FUnctions and Procedures. The guiding principle which underlies a staff function is that a staff exists solely as an aid to a line organization. The primary values that justify the life of the organization are created by the line. Therefore usurpation of line authority and responsibility on the part of the staff endangers the entire organization.38 The staff must exercise extreme-caution in pre- serving the integrity of the line organization at all times for line integrity may be jeopardized if the staff develops the feeling that it is more important than the line and its reason for being is not to serve the line. Staff officers have no command authority except over other members of their staff division. In this sense, staff officers may be authorized to issue to subordinate units orders or directives in their 36John Robert Beishline, Militapy Management for National Defense (New York: Prentice Hall, Inc., 1950), p. 162. PRESENT ORGANIZATION OF THE HEADQUARTERS OF THE PHILIPPINE CONSTABULARY CHART -'—'—' CH'EF OF PERSONAL STAFF CONSTABULARY AIDES DEPUTY CHIEF OF CONSTABULARY SECRETARY TO CHIEF OF STAFF CONSTABULARY STAFF G E N E R A L S T A F F C—l OR C—2 OR C-3 DR C-4 OR C-5 OR C-G OR PERSONNEL INTELLIGENCE OPERATION, PLANS LOGISTICS CRIMINAL COMPTROLLER DIVISION DIVISION BTRAINING DIV. DIVISION INVESTIGATION DIVISION S P E C A L S T A F F I'— H ADJUTANT INSPECTOR STAFF OFFICE FINANCE CHAPLAIN PUBLIC PUBLIC TROOP FIREARMS ENGINEER SIGNAL ORDINANCE QUARTER MEDICAL DENTAL SPECIAL GENERAL EN RA JUDGE OF _ ' INFO-8 ERVICE G E L ADVOCATE INTERNAL SECIION SERVICE AFFA'R INFO EDU. ’8‘ SECTION SECTION SECTION MASTER SECTION SECTION 3 SECTION SECTION SECTTON AUDTTOR _ OFFICE OFFICE SECTION EXPLOSIVES SECTION SECTION L L L____. L_L..--___.. L.....-___._.J SEPARATE UN_,IT_S ATTACHED TO HEADQUARTERS I T I TRAFFIC PHIL. H O 2ND PC PRES SCOUT PC ‘ CONTROL CONST. SERVICE BAND GUARD DOG CAVALRY GROUP SCHOOL BATTALION BATTALION PLATOON ~ SQUADRON 35 commander's name when operating within clearly established policies and decisions.39 The extent to which the commander may authorize his staff to act in his stead depends upon his evaluation of the ability, train- ing, and judgment of his staff officers. Even if a staff officer issues an order in the name of the commander, reSponsibility still remains with the commander even without his benefit of seeing or hearing the order actually executed. General Staff supervision is not inclusive of command. There— fore general staff leadership embraces leadership of ideas and not of authority. General staff supervision involves the process of advising other staff officers and subordinate commanders of the plans and pol- icies of the Chief of Constabulary. It includes the interpretation of these plans and policies, the furnishing of assistance to elements of the command in the implementation of directives and in the supervision of their execution, and through inspections, to determine the extent of compliance so as to keep the commander fully informed and properly ad- vised. .A typicallstaff—type duty which falls to members of the Head— quarters of the Philippine Constabulary is to prepare and issue neces- sary orders and supervise their execution. The General Staff Because of the multiplicity of details that the Chief of Constab- ulary has to attend to, it is necessary that he should have a coordinating ”Department of the Army, USAF, Staff Officers' Field Manual - Staff Organization and Procedure, (Washington: Department of the Army, l9 . 36 staff. This coordinating staff is termed as the General Staff. It is organized into functional divisions, which together, embrace all func- tions of the command.40 The General Staff is the Chief Of Constabulary's principal agent in coordinating the plans, duties, and operations of all elements of the Constabulary, including field units and the Special staff, and in coordinating all activities to insure the most efficient employment of the force as a whole. The General Staff consists of the Chief of Staff and the Assis- tant Chiefs of Staff and their respective divisions. The Constabulary has an.Assistant Chief of Staff for Personnel Division (C-l), Intelli- gence Division (C—2), Operations, Plans and Training Division (C-3), Logistics Division (C-h), Criminal Investigation Division (C-S), and the Comptroller Division (0-6).41 General Staff officers implement the decisions, plans and policies of the Chief of Constabulary by formulat- ing orders and issuing them in the name of the Chief to subordinate units. The General Staff officers are commonly involved in polioy- making and normally do not engage in Operations, services and activities which are within the province of subordinate commanders and special staff officers. The Chief of Staff. The Chief of Staff is responsible for the general supervision of the General Staff. He is the principal coordinating 40Department of the Army, USAF, Field Service Regulation Adminis- tration (Washington: Department of the Army, 19Sh). 41Headquarters Philippine Constabulary, Philippine Constabulary 58th.Anniversary (Manila: Community Publishers, Inc., 1959), pp. 22-25. 37 agent of the organization. Normally, he is the most senior Officer in the General Staff. He transmits the decisions of the Chief of Constab- ulary to appropriate staff officers for preparation of the necessary orders, or transmits them in the form of orders to those who execute them. The Chief of Staff is the connecting link between the Chief of Constabulary and his staff. The Chief of Staff frequently requires an.Assistant Chief of Staff to present information, estimates, and plans directly to the Chief of Constabulary. Even if the General Staff Officers are respon— sible to the Chief of Staff, nevertheless, they are frequently consulted individually and collectively by the Chief of Constabulary. When this occurs, they are expected to inform the Chief of Staff of such consulta— tion and of the information given or received. Office of the Secretary of the General Staff. The Secretary to the General Staff coordinates the staff activities at the headquar- ters and sends directives from headquarters to field units. It falls under the office of the Chief of Staff. A brief description of each of the constituent elements of the General Staff is presented below: Personnel Division (Ctll. The Personnel Division is charged with staff responsibility for personnel matters other than training. Such duties usually pertain to personnel management of the entire Consta- bulary, both civil and military, under its supervision and control. It provides for personnel requirements of the field units of the Constabulary 38 like assignments, recruitment, and promotions and handles problems of discipline of Philippine Constabulary men.42 Intelligence Division (C:2). The intelligence division is Charged with the staff reSponsibility for matters pertaining to military intel- ligence and counterintelligence. .Men in battle and in routine policing can only move about their tasks with confidence if they have proper and current information about the enemy at hand. This division takes care' of the collection, collation and dissemination of information such as the location of the enemy, his potential, types of arms, strength and movements which are vital factors in determining battle success.43 Qperations,_Plans and Training Division (C-32. The operations, plans and training division is charged with the staff reSponsibility for planning, and coordinating matters pertaining to organization, training, and combat Operations. It acts as the central agenoy whose members, serving as a staff agency, directs the efforts, activities and movements of the different branches of the organization. It is also responsible for projecting long range operational plans for the organ- ization. Its duties include the;preparation and coordination of plans for and supervision of the organization, and equipment of units, and the employment of personnel. It also prepares and coordinates plans for unit and individual training and supervises their execution. Finally, it exercises general staff supervision over combat Operations and it _— 421bid., p. 23. 431bid., p. 2b,. 39 recommends to the Chief of Constabulary priorities for the assignment of personnel and equipment.44 Lpgistics Division(§eg). The principal reSponsibility of the Logistics Division is to direct and control the distribution of supplies and equipment requisitioned from the various APP supply installations and depots to the numerous Philippine Constabulary units in Camp Crame and those in the field. In this sense, it also has staff responsibility for matters pertaining to supply, evacuation, hospitalization, tranSpor- tation, technical services and related administration. This division is further responsible for the preparation of those details pertaining to logistics in the administrative plan and the supervision of its execution.45 Criminal Investigation Division_(C—5). The Criminal Investiga— tion Division handles the investigation of crimes throughout the country through its specialized investigative units. Its work is correlative with that of the local investigative unit when it comes to investiga- tion of crimes. Its function is that of an investigative police Spec— ialized in the field. As such it is an operating unit included in the General Staff.46 The Criminal Investigation Division has one of the biggest criminal laboratories in the Far East. It has several specialized 44Ibid. 45Ibid. 46Ibid. ITO branches with laboratory technicians, investigators and agents who take care of the scientific investigation job for the Constabulary. Comptroller Division (9-6). Budgeting and fiscal control in the Philippine Constabulary is perfOrmed by the Comptroller Division. This Division has implemented a budgeting system based on actual per- formance of employee and.provided the command with a budget estimate commensurate with its activities.47 The Sppcial Staff The Special Staff consists of officers having staff duties per— taining to specialized activities of command. Special Staff officers exercise operational control of Specific units in the name of and under the direction of the Chief of Constabulary. They normally exercise operational control of their arm or service not assigned or attached to subordinate commands. Operational control includes direction of technical, tactical, or serviCe operations or any combinations thereof. This organization stands in contrast with the General Staff which exer- cises staff responsibilities in its purest sense. The Special Staff includes two types of services: technical and administrative. The technical services are the Engineer, Medical, Sig- nal, Quartermaster, Ordnance and Dental Sections. The administrative services are the.Adjutant General, Inspector General, Staff Judge Advo— cate, Finance, Chaplain, Public Affairs, Public Information, Troop Information and.Education, Internal Auditor, and.Pirearms and Explo- sives Sections.48 47Ibid., p. 25. 48Department of the Army, USAF, Field.Service Regulation Adminis- tration (Washington: Department of the Army, l95h). hi .A summary description of each of these units is presented below: Adjutant General Section (AG). The Adjutant General Section is responsible for issuing orders to various branches of the Constabulary in conjunction with other divisions and sections, and handling the personnel records of the Philippine Constabulary. Inspector General Section (IG). The Inspector General Section investigates complaints and allegations of malpractices lodged against officers and enlisted personnel of the Philippine Constabulary by Civil— ians. It also conducts investigations of similar nature matters which may be raised by military personnel/i9 Staff Judge.Advocate's Office (SJA). Police work, particularly as it applies to the conduct of investigations, is not complete without the men who prosecute law violators. The Staff Judge Advocate’s Office prepares criminal cases for presentation to prosecuting attorneys, aids in the prosecution of cases, evaluates the possibility of prosecution and studies more complicated cases to determine what the proper viola- tion to charge an offender with. This office has three branches: the Military Affairs Branch; the Military Justice Branch; and the Professional Services Branch. A fourth branch, the Military Intelligence Legal Branch, which was once under the G-2, AFP, has been attached to the office of SJA.5° 4S'Head arters Philippine Constabulary, Philippine Constabulary Report 1955-5 , (Quezon City: HPC Press, 1956), p. 70. 5°Ibid. , p. 1.2. A2 Office of the Internal Auditor_(IA). This section takes Charge of the auditing and the fiscal inspection of Philippine Constabulary funds. Finance Section (FIN). This section is the "custodian of the Philippine Constabulary purse." It has related functions with the Comptroller Division such as the control and disbursement of money. Chaplain Service (CHAP). The mission of the Chaplain service is to provide Philippine Constabulary personnel with the opportunity to improve their moral and Spiritual lives. Desirably, this service has a profound impact on the men from the level of recruit to the highest ranking officer. Public Affairs Office (PAO). This office handles the psycholog— ical warfare -- which through an air of friendship and camaraderie in- duces the dissident elements to return to the fold. For example, under the direction and supervision of the Public Affairs Office, leaflets and posters urging the Huks to surrender are airdrOpped in Huk-infested areas.51 Public Information Office (BIO). This office has the mission of bringing the government closer to the people through supervising the dissemination of information by means of radio, TV, and the press. The PIO also conducts public relations work in close coordination with the PAC. h 511bid., p. AB. A3 Troop Information and Education Section_(TIand E). This section handles educational problems and indoctrination of military conduct among Philippine Constabulary personnel and also takes charge of the compilation of the historical documents of the Constabulary. Firearms and Emplosives Section_(FES). The enforcement of laws and regulations regarding firearms and explosives, the registration of firearms, the issuance of permits and licenses to own and to bear fire- arms is the province of the Firearms and Explosives Section.52 Engineer Section (ENGRZ. This section is charged with the con- struction, repair, and maintenance of buildings and grounds for the HPC and all Philippine Constabulary units. Signal Section (SIG). In coordination.with the Signal Service Battalion of the AFP, the Signal Section is charged with the operation, maintenance and repair of Philippine Constabulary communication facili- ties including teletype and radio installations. This section also pre- scribes PC communication requirements throughout the country.53 Ordnance Section (0RD). The Ordnance Section is charged.with the procurement, maintenance, and assignment of vehicles, armaments and other ordnance supplies. Quartermaster Section (0M1. This section provides quartermaster supplies and services to all elements of the Philippine Constabulary. 52Ibid., p. 28. 53Ibid., p. A6. Ab Its supply responsibilities include the determination of the require— ments for and.procurement, storage, and issue of QM supplies and equip- ment, such as: subsistence, individual clothing, organization supplies and equipment, liquid petroleum fuels, and lubricants. Medical Section_(MED). This section is reSponsible for insuring that the medical and health problems of the PC men are cared for. It discharges its mission by determining that adequate physicians are as- signed to each operating unit. It also operates the HPC infirmary which takes care of PC men and their families seeking medical assistance.54 Dental Section (DENfl). The Dental Section is responsible for insuring that the dental problems of PC men and their families are cared for. It also assists by bringing dental aid to the people in rural areas. Special Services Section (SPL SVil This section handles problems of morale and.provides for the Constabularymenis recreational facili- ties and management of athletic and other activities of the organization.55 The Personal Staff The Chief of Constabulary's personal staff consists of such officers and enlisted.personnel as he chooses to coordinate and admin- ister non-technical and routine details that does not require the broad 54Ibid., p. 61.. 55Ibid., p. 60. IIS exercise of discretion. The Aides—de—camp to the Chief of Constabulary are members of his personal staff. Normally, they are not members of either the General or Special Staff. At times, however, a Special Staff Officer may be the Chief‘s personal staff for part of his activ— ities. The Inspector General and the Public Information officers are examples of this nature. Separate Units.Attached to the Headquarters There are several separate units which are organizationally at— tached to the Headquarters of the Philippine Constabulary but which in reality are independent Operational units. Instead of being under the direction of operational commanders in the Zones, they operate under the direct supervision and control of the office of the Chief of Con- stabulary. Having Specialized functions, these separate units do not belong organizationally within either the General or Special Staff. These separate units include the following: 1. Traffic Control Group 2. Philippine Constabulary School 3. Presidential Guard Battalion A. Headquarters Service Battalion 5. PC Band 6. PC Cavalry Squadron 7. PC Dog Platoon 8. Motor Pool. A summary description of the activities of each is described below: Traffic Control Group. This office is entrusted with the enforce- ment of motor vehicle laws and regulations throughout the country. This unit has at present a fleet of about 70 mobile teams enforcing laws and A6 ridding the roads of vehicles that are already traffic hazards. The traffic arm of the Constabulary also conducts seminars on traffic safety and safe-driving methods in many of the bus terminals in various areas of the country.56 Philippine Constabulary School.. This school is charged with the training of Philippine Constabulary men for combat as well as in- vestigation. It also trains local policemen in a supplementary effort to the overall program.of the Constabulary and also security men of other _government offices.57 Ppesidential Guard Battalion. This unit is charged with the protection of the lives of the President, the members of his immediate family, and foreign dignitaries who are guests of the President at the Malacanan Palace. It also protects these persons as they travel or are engaged in business anywhere in the country.56 Headquarters Service Battalion. The overall security of the PC headquarters in Camp Crame, including the safekeeping Of civilian prisoners in the stockade, is a task of the Headquarters Service Bat- talion. This battalion is also responsible for the maintenance and operation of the general service facilities in the camp, and the is— suance of office supplies, uniforms, and.weapons to the PC men in Camp 55Ibid., p. 2b. 5"Ibid.., p. 16. “Ibid. , p. 68. h? Crame. The Commandant of the Headquarters Service Battalion is in charge of parade formations, inspection of men and vehicles, and.guard details inside the camp.59 PC Band. This unit provides music for military as well as social functions in the Constabulary. It is the successor of the world-famous Philippine Constabulary Band that reaped honors abroad some thirty years ago.60 PC Dog Platoon. This unit is in charge of the training of dogs for tracking down criminals. Motor Pool. This section handles the upkeep of HPC vehicles, their procurement and their dispatch in connection with official functions. 591bid., p. 60. 5°Ibid., p. 71. CHAPTER III EVALUATION OF THE PRESENT ORGANIZATION For several years, the PC Headquarters has been Operating with- in the framework of a military organizational structure which, for practical purposes, has been proven most expedient. As a result, the PC has not only had to conform.with the military pattern of the AFP, but it had to harmonize its administrative procedures with those adapted by the General Headquarters of the.AEP. Thus the PC, over the years, had to maintain a headquarters following a general staff pattern kindred to that found in a military organization. A critical analysis of the mission of the Constabulary reveals one important aspect: the PC was initially designed in 1901 to serve as a national police body based on a semi—military organization, not upon a military organization per se. It is obvious that to organize a police body in a military fashion will be to channel its function for a military purpose. During the past decade, the Constabulary's organization along fundamentally military lines has been justified principally because the Constabulary was engaged in an armed struggle against a large group of communist—inspired dissidents — the Hukbalahaps — who have attempted to overthrow the duly constituted government. To wage war against an armed group as a civil police body has proven inappropriate and impractical. To combat the dissidents effectively, the Constabulary had to organize in a military fashion. Since the crisis has passed, however, and the PC has again resumed its normal statutory functions A9 of maintaining peace and order and repressing criminality, the organi- zational structure should revert to that consistent with a semi-mili- tary concept. I. DEFECTS IN THE ORGANIZATION .As a consequence of a failure to apply some of the sound basic principles of organization, the organizational structure of the head- quarters is plagued with defects. Some of the major defects which are treated with careful study are the overlapping of responsibilities, overlapping of functions, manpower waste, multiple dispersion of func- tions, broad span of control, and the Specific failings of the General Staff. Overlapping_of Responsibilities One of the basic principles of organization which is violated in the present structure of the headquarters of the PC is the concept of organization by function. In essence, the principle states that every function involved in the mission and objective of the organiza- tion is assigned to a single unit of organization and that no function is assigned to more than one independent unit. The reSponsibility as— signed to each unit should be clearcut and well understood; overlap- ping reSponsibility'will cause confusion and delay.61 Overlapping of reSponsibilities exists in some parts of the headquarters because of the creation of new organizational entities 6’tAlvin Brown, The Armor of Organization (New York: Hibbert Printing Company, 1955), p. 280. 50 each time there is an exigency that arises. The creation of new units without planning gives rise to duplication of units having the same or similar functions. Some illustration of these defects are: the Public Affairs and Public Information Offices have interrelated functions and yet they are two independent units in the present structure; the Train- ing Branch of the C-3 Division and the PC School are two separate enti- ties, the former being a part of the General Staff while the latter is a separate unit attached to the Headquarters. Both have functions that are geared to training of troops. The Troop Information and Education Section is also concerned.with the education of troops, yet it remains a special staff unit. There is not only an overlapping of functions; there is duplication of responsibilities. Overlapping of Functions There is too much overlapping in the general staff pattern of organization which, as a result, is wasteful of personnel. For ex- ample, the.Adjutant General Section deals with personnel records, yet the General Staff (C-l) must tell the Adjutant General in a staff advisory sense how to do his job. Also, the PC school is charged.with training PC troops, yet the General Staff (C—3) must tell them in a staff sense how to train troops. Furthermore, there are agencies or- ganized to supply the tr00ps such as the Quartermaster, Engineer, and Ordnance Sections, yet the General Staff (C-h) must tell them in an advisory sense, how to supply troops. Such a duplication of effort is dilution of responsibility which conceals who is at fault for a job that is poorly done or accomplished. 51 Waste of Manpower Duplication and overlapping invariably result in.waste of man- power. Poor functional organization results in many men required to share in doing what one man can do. EXcessive manpower causes multi- plicity of relationships. Inefficient use of manpower is also the result of a complex and faulty organizational structure.62 There is a relationship between organizational structure and a machine. For example, a machine is built for a purpose and differ- ent kinds of machines may be used for the same purpose. The same purpose can often be gained by a machine that is simple with few parts as it may by a machine that is complicated.with many parts. The same is true with an organizational structure. The parts of an organ- izational structure are the jobs and the men who fill the jobs. Where- as the organizational purpose may be achieved by a structure that is simple and of fewer men, the structure may be designed so complexly as to require many men. This is waste of vital material of organiza- tion - manpower.63 .An illustration of this defect is as follows. The Headquarters presently has a total manpower of 389 commissioned officers and enlisted.personnel, as well as approximately hOO civilian employees employed to man the different divisions and sections. There is much overlapping of functions and responsibilities and, therefore, there exist positional jobs which otherwise could be dispensed with. Each division and each section has one commissioned officer and a number of 62Ibid., p. 3. 63Ibid. 52 enlisted personnel who are designated as administrative personnel charged with the regulation of the internal activity of the unit like the making of a duty roster, directing the flow of communication mat- ters within the office, authentication of official communications eman— ating from the office, and so forth. If a group of related functions is placed under one division and the job of administrative officer be given just to one officer, then much manpower could be saved. Thus waste of manpower in the PC Headquarters results because of its complex and faulty organizational structure. Multiple Dispersion offiPunctions Excessive manpower causes multiple dispersion of functions. Multiple diSpersion of functions results in a complex structure which is an impediment to efficient administration. In this connection, ad- ministration can be likened to a railroad train. A local train compel— led to meander from.point to point and stop frequently at stations, arrives long after the express train that Speeds to its destination. Administration compelled to conform to a dispersion of function among the number of organizational parts, will reach its destination of decision and action long after it should. In any enterprise, such a complex administrative process saps accomplishments.64 .As a further illustration of multiple diSpersion of functions, the Comptroller or 0—6 Division is charged with budgeting and control— ling of PC funds, the Finance Section is charged with the custody of PC funds, and the Internal Auditor's Office is reSponsible for auditing 64Ibid., p. h. 53 of funds. While the functions of these three agencies are closely re- lated to each other, these agencies have been perpetuated as separate, independent units in the present organizational structure. This has created multiple relationships and impeded effective administration in the sense that official matters emanating in the Finance Section must be coursed through the Office of the Internal Auditor, then the Chief of Staff. Budget estimates originating in the Comptroller Division must pass the Chief of Staff before they are implemented by the Finance Section and the Internal Huditor's Office. The obvious consequence: extended complex process, much delay, and unnecessary confusion. Another example of the complex and overlapping structure of the Headquarters staff of the PC which fosters duplication is the existence of the C-h Division as an independent unit whose responsibility is the direction and control of the distribution of supplies and equipment requisitioned by the technical services of the special staff from the various.AFP installations and depots to the numerous PC units in the field. Each of these special staff sections (Ordnance, Quartermaster, Engineer, Medical, Dental and.Signal sections) has functions similar to that of the C—h Division though limited to their respective require— ments. .Actually, there is dispersion of the major function of logistics to the different sections mentioned which accounts for the delay in administrative action. Broad.Span of Control .A broad span of control as illustrated in Chart III, requires the Chief of PC to make a large number of decisions and to participate in operating details. Because of the unrealistically large number of Sh officers reporting to him, the task of coordination becomes complex to a point where it becomes virtually absent. The Chief of PC finds him- self so enmeshed in details of supervising the 29 subordinate officers that he has little time to devote to his cardinal duties of administra— tive planning, inSpection and management. Such conditions may so bur- den him that he is unable to exercise or provide positive, creative, and imaginative leadership to the entire PC organization. It is evident that the present organizational structure of the Headquarters of the PC requires the Chief of Constabulary, through his Deputy Chief of Constabulary, to serve as the immediate supervisor of about thirty persons. For example, the Chief of Constabulary has under his direct supervision and control the Chief of Staff of the General Staff, the supervisors of the seventeen sections of the Special Staff, the supervisors of the seven separate units attached to the headquarters, and the commanders of the four Zone Commands. Such a broad, unwieldy span of control is clearly beyond the control of any administrator. One underlying reason for the existence of such a broad Span of control is the rigid.policy followed by the AFP of adapting a definite pattern of a military organization. Another reason.why the Span of control has grown through the years is because when the organization has instituted a new activity, the activity has been 30 created that the head always reports directly to the Chief of Constabulary. The consequence has been that the organization of the Headquarters of the PC has evolved over the years without conscious plan and'with little regard for the impact ofinew units on the already existing units. 55 many factors enter into the determination of how many men the Chief can effectively control. Considerations to be taken are the in- dividual capacity of the commander, the diversification of functions represented by the subordinates, the urgency of decisions required by these functions, and the premium placed on Speed of action.55 The Head- quarters would function with greater efficiency if it were organized so that the Chief could exercise supervision only over Six or seven individ- uals. The span of control may be reduced by the employment of additional levels of supervisory officials, thus lengthening the chain of command. The present large number of immediate subordinates increases the diffi- culty of command, whereas a decrease made possible by extending the chain of command by an increased number of levels of authority tends to simplify the problem of command. It should be borne in mind that each level of authority moves the commander by one intermediary from the actual operations and consequently from the opportunity personally to direct, coordinate and control the efforts of the force.66 In this case, however, the benefit gained outweighs the disadvantages created by lengthening the chain of command. II. FAIIlNGS OF THE GENERAL STAFF One of the principal failings of the organization of the Head- quarters of the PC is the failure to recognize the limitations of staff 65O. W. Wilson, Police Administration (NeW'Yorkx MoGraw—Hill Book Company, Inc., 1950), p. ho. 66mm, p. Liz. 56 authority. The general staff, as originally envisioned, was to serve as the "oomander’s agent in harmonizing the plans, duties and opera- tions of all elements of the command to insure the most efficient em- ployment of the force as a whole."67 In this concept, the general staff officer was to have no command authority except over the members of his staff division. He is authorized to issue orders to subordinate units only in the name of the commander and when operating within the commander's established.policies and decisions.68 However, in actual practice, this concept has not been the case. For example, a staff officer is the assistant of his superior and he issues orders in his superior's name. No matter how much he invokes his superior's name, the order still retains the aspect that personal orders always have. Also, frequently, orders are addressed to a person superior in rank to the person actually issuing the directive. Such practice has not proven sound or conducive to coordination and discipline. In addition, the general staff officer has had to "supervise" senior officers receiving his orders to see that such orders were carried out. .As an obvious consequence, personal relationships have been strained to such a degree that it is not unusual for the subordinate unit commanders to resent such unwarranted intrusion of their authority by officers of less rank and position. In some instances, the general staff officer must issue an order to an officer who is not responsible to him. Such a situation represents “Department of the Army, USAF, Staff Officers' Field Service Regulation Administration (washington: Department of the Army, I95b). 68Ibid. 57 a cardinal violation of the concept of the chain of command. From the military viewpoint, one can argue that the general staff as an agency does not assume any command authority when issuing orders and directives, but few will deny the fact that staff officers are, in fact, exercising direct command responsibilities. Another principle of organization which the very existence of the General Staff violates regularly and grossly is that authority necessary to perform a function should be attendant to commensurate reSponsibility.69 For example, general staff officers are vested with delegated authority to issue orders but the basis of such authority has never been expressed or implied under any circumstances. Yet such delegated authority carries with it the weight of delegated responsi— bility. The burden of responsibility for the accuraoy and legality of the order is still borne by the commander even if he has not seen or heard the execution of the order issued in his name. To have the author- ity without the reSponsibiiity that requires it would be to have an empty power which resembles absurdity. Either a man has the reSponsibil— ity, and the authority commensurate with such responsibility, or he has neither. Another function of the General Staff is general planning. Gen- eral planning may be defined as planning which affects the functions of two or more units and which is not closely related to the functions of 6S’o. H. Wilson, Police Administration (New York: MoGraw-Hill BOOK Company, Inc., 1950), p. 9. 58 any of the units.70 The General Staff, therefore, is not expected to go into the business of detailed.planning. .After the mission of each unit has been prescribed, that unit should.plan for the manner of executing its mission. Only the exterior control is left to the General Staff - that of the control of the prescribed program and objective. A man gains no greater ability to plan because he is called a general staff officer; a well—made plan is of the same worth if it is done in the office of the General Staff as if it were done within the framework of one of the operational units. 79Alvin Brown, The Armor of Organization (New York: Hibbert Printing Company, 1955), p. 172. CHAPTER IV PROPOSED.REORGANIZAIION OF‘THE HEADQUARTERS OF‘THE PHILIPPINE CONSTABULARY Organization defines the part that each member of an enterprise is expected to perform, and the relations among those members, to the end that their concerted endeavor will contribute towards the accomp- lishment of the objective of the enterprise. Thus organization, as its definition shows, has two aims. The first aim Specifies the jobs. The result is called organizational structure.71 It is along this line that these proposals are principally devoted. The defects of the organizational structure of the headquarters have resulted from a failure to apply sound principles of organization as:72 l. Tasks similar or related in purpose, process, method or clientele are grouped together in one or more units under? the control of a single person. 2. Each individual, unit, and station must be under the immedi- ate control of only one person thus achieving the principle of unity of command. 3. Each assignment of responsibility carries with it commensur- ate authority to fulfill the responsibility. b. No more persons or units are placed under the direct control of one man than he is able to manage. 7lAlvin Brown, The Armor of Organization (New York: Hibbert Printing Company, 19557: p. 3. 720. W. Wilson, Police Administration (New York: McGraw-Hill Book Company, Inc., 1957), p. 9. 5. Each task is made the unmistakable duty of someone. 6. Channels are established through which information flows up and down and through which authority is delegated. 7. Lines of demarcation between units are drawn by precise def- inition of duties which are known to all members so that their reSponsibility may be placed exactly. 8. Supervision is provided of each person at the level of ex— ecution regardless of hour or place. It is not an excuse to justify the existence of these defects by the fact that the organization is too big and its problems so complex, that to obey principles alone would not be a remedy for all these defects. Such a rationalization has no basis. Principles are obviously not con- ditioned by the size of the enterprise or the magnitude of the problem, for the principles of mechanics are essentially as closely kindred to the most complicated machine as to the simplest.73 The extent of the defects described in Chapter III leaves no choice but to effect a comprehensive reorganization of the headquarters of the PC. The task of applying the principles is not one of repair and stop-gap measures for the existing structure is composed of a series of such measures. The old structure in its entirety is defective. Some parts of the old may be used in the new, but the task is one of new and complete reconstruction; the new must not look like the old. 73Alvin Brown, The Armor of Organization (New York: Hibbert Printing Company, 19557: p. 312. 61 I. DISSOLUTION OF THE GENERAL STAFF The General Staff should be dissolved. Both principles and ex- perience disclose that the General Staff should be abolished for an organization should not place reSponsibility for decision and leader- ship on several men. It means principally that a committee or a group like the General Staff should not be used to exercise command. This principle is of prominent importance in its application to those higher levels where prompt, decisive leadership is indispensable to success. Command, in other words, must be exercised.by one individual alone; not by the General Staff (a staff, not operational body) and not by delegates purporting to employ the commander’s authority. Some commentators may take issue with the foregoing statement that the duty of command is too large to be performed by one individual and a commander cannot command without a staff to do a large part of his duties. One of the strongest arguments against the dissolution of the General Staff is that subordinate unit commanders cannot be entrusted with too much power and must therefore have staff officers to watch their activities, curb their malpractices, and help them in their needs.74 The solution to this problem of command is not the employment of a General Staff but for each commander to delegate enough of his re- Sponsibilities both in extent and degree so that he may reduce his command to a practicable personal mission. In doing so, each commander must surround himself with subordinate commanders who are competent and who will bear the full load of their responsibility. The commander 74Ibid., p. 313. 62 will have planners for planning that relates to more than one of the missions of the subordinate commands, but these planners will not tell the subordinate commanders how their part of the plan shall be executed. The commander in addition, will have inspection teams, that on his be— ‘half'will tell him.when his subordinate commanders are not doing their jobs. The remainder of the task of command rests with him. If all parts are well organized, it will be a practicable mission. II. TOP LEVEL REORGANIZATION There is much evidence of a need for top level reorganization after a thorough survey of the activities of the Chief of Constabulary. Because of his overcrowded calendar and complex Span of control (29 persons report directly to him.presently), his immediate subordinates are finding difficulty in obtaining interviews with him. Frequently, private citizens occupy a large portion of his time discussing mat- ters that otherwise could be dealt with by a public relations man. There is a heavy demand for the Chief of Constabulary's presence for ceremonial duties, public meetings, addresses, and official conferences. Oftentimes, operations are held in abeyance for protracted periods pending decisions by the Chief,because he is too busy to give the mat— ter his attention. .Also, because of the broad territorial jurisdiction which the Constabulary encompasses (the whole Philippine Archipelago), he lacks the time to study the large and actually most significant problems of the Headquarters, to plan for broad and long range programs, to spot-audit division operations, activities, conditions, and make frequent personal contact with his subordinates at every level of 63 authority. In summary, the Chief is overburdened with detail, enmeshed with activities not germane to the management of his command and un- able to completely discharge his appointment to the fullest. With the foregoing situation, it becomes necessary that assistance be pro- vided to the Chief of Constabulary by reorganizing the top level so that he may have time for more important tasks. It is recommended that the reorganization should take the form of narrowing the span of control of the Chief of Constabulary, by creat- ing the position of a Vice Chief of Constabulary and two Deputy Chiefs. The Vice Chief of Constabulary will be second-in-command of the organi— zation and will be in direct control and supervision of the two Deputy Chiefs and the four lone Commanders. He should serve, essentially, as a buffer between the Chief and the rest of the organization and be the Chief's principal counselor. One of the Deputy Chiefs will be desig- nated as Deputy Chief for Planning and Intelligence and the other as Deputy Chief of Administration and.Auxiliary Services. There will be a corresponding extension of the chain of command but the advantages that specialization will offer will more than offset the difficulties incurred by lengthening the chain. Furthermore, a logical functional division separates the immediate subordinates of the Chief into those in charge of units performing the primary Constabulary task (Zone Com— mands) which falls under the Vice Chief of Constabulary, those in-charge of planning and intelligence under one Deputy Chief and all units per- ofrming purely administrative tasks under another Deputy Chief. The proposed functional organization of the Headquarters of the PC is depicted in Chart IV. 7 —~A_ UPPLY 8 ERVICI HVISII ‘V‘ CHART IV PROPOSED REORGANIZATION OF THE HEADQUARTERS OF THE PHILIPPINE CONSTABULARY 6A CHIEF OF CONSTABULARY I #I PUBLIC 1 RELATIONS AIDES INSPECTION OFFICE WCE CHIEF OFFICE OF CONSTABULARY .1— SECRETARY TO THE CONSTABULARY 45m FF DEPUTY CHIEF FOR PLANNING 8 INTELLIGENCE DEPUTY" CHIEF FOR ADMINISTRATION a SERVICESI INTELLIGENC PERSONNEL RECORDS SUPPLY PLANNING a a a 8. DIVISION SECURITY I TRAINING FISCAL SERVICES I DIVISION DIVISION DIVISION DIVISION I I COMB/IT CRIMINAL T COUNTER_ a # OPERATIONS INVESTIGAHON INTELLIGENCE} INTELLIGENCE I PERSONNEL TRAINING RECORDS FISCAL a ENGINEER ORDNANCE SECTION SECTION SECTION I SECTION I ' SECTION SECTION I SECTION BUDGET SECTION SECTION SECTION #l i .‘ TRAFFIC ORGANIZATION I c 7 LEGAL - . Sgim- a STAFFING INTELLIGENCE I COMMUNICATION aufggg CHAPLAIN SECTION SECTION I SECTION SECTION SERVICE I ' I F‘ - w — — - — rH--——-V-——-—~L~—--——-—-——-— I - "—-——‘T"‘""‘”—“'I [ I I , I MEDICAL DENTAL I I I SECTION SECTION I PC ZONE II PC ZONE III PC ZONE IV PC ZONE L HREARMS a , EXPLOSIVES SECTION 65 III . FUNCTIONAL ORGANIZATION Functional organization has been defined as "the division of the members of the force into groups for the performance of tasks that are simdlar or related in purpose, process, or clientele."75 Within the structure of organization, it is necessary that the distribution Of work load be arranged in some logical plan. Fundamentally, this involves the grouping, of related functions into administrative units for econom- ical and effective supervision and control. In the determination of those functions and activities which are related to justify location under unified supervision, a number of factors will influence the de- cision. These include the major purpose of the activity or function, the process or method to be employed in achieving its immediate objec— tive, and the nature of clientele with which it must deal.76 In consonance with this guiding principle, the reorganization of the Headquarters of the Philippine Constabulary include the following amalgamations of activities: I. Chief of Constabulary A. Aides-de—camp B. Inspection Office C. Public Relations Office II. Vice Chief of Constabulary A. Secretary to the Constabulary Staff III. Deputy ChkquOr Planning and Intelligence 75Leonard, V..A., Police Organization and.Management, (Brooklyn: The Foundation Press, 1951), pp. 87-85. 761hid., p. 88. A. B. 66 Planning Division 1. )4. Combat Operations Section a. Operations Branch b. Research and Planning Branch Criminal Investigation Section a. Investigation Branch b. Legal Assistance Branch 6. Criminal Laboratory Traffic Control Section a. Traffic Enforcement Branch b. Traffic Education Branch Organization and Staffing Section Intelligence and.Security Division 1. 2. 3. Intelligence Section Counterintelligence Section Intelligence Legal Section IV. Deputy Chief for Administration and Auxiliary Services A. Personnel and Training Division 1. Personnel Section a. Personnel Management Branch b. Legal Counselling Branch c. Special Services Branch d. PC Band Training Section a. Training Branch b. PC School c. Troop Education Branch Records and Fiscal Division 1. Records Section a. Records Branch b. IAdjutant's Branch c. Identification Branch Communication Section Fiscal and Budget Section a . Budget Control Branch b. Finance Branch c. Internal Auditor Branch 67 C. Services and.Supply Division 1. Ordnance Section 2. Engineer Section 3. Quartermaster Section N. Dental Section 5. Medical Section 6 Chaplain Service 7. Firearms and Explosive Section This proposed reorganization is further elucidated in the suc- ceeding discussion. Inspection Office There should be Inspection teams serving directly under the. supervision of the Chief of Constabulary. This Office is a carry-over of the InSpector General Section which is reSponsible for making inspec- tion within the organization primarily for disciplinary purposes. It makes investigations upon orders by the Chief, reviews inSpection re- ports submitted by the Zone and Provincial Commanders, investigates and directs the investigation of complaints by the public and conducts in- vestigations of disciplinary cases submitted to the Headquarters. All public complaints regarding Constabularymen and their activities are channelled to the InSpection Office which is reSponsible for answering these complaints. Audits of operations and investigation of morale should also be made. A regular administrative report should be submit- ted to the Chief of Constabulary concerning the general compliance throughout the organization with administrative rules and regulations.?7 77R ort of an Administrative Surve Police Services in Puerto Rico (WasETngton: Puinc Kfifiinistration Eervice, I95II, p. 36. J a Public Relations Office The public relations job Of a large organization like the PC should be the reSponsibility Of a Public Relations Office. Its mission is to gain public support for Constabulary policies and to win citizen cooperation in the organization's programs and procedures in order to facilitate the accomplishment of the Constabulary’s task. Its duties may be divided into four broad categories: (1) evaluating of public Opinions and attitudes with respect to policies and methods Of the organization; (2) planning informational activities and keeping the public informed Of the Constabulary's activities; (3) advising the Chief with regards to the public relations aSpect of new and revised organizational programs, policies and activities; and (h) furnishing supervision of all police activities that may influence public support. In addition, the Public Affairs Section will continue to handle the psychological warfare — the Ileft—hand effort' - which through an air of friendship and camaraderie induces the dissident elements to return to the fold. The Public Information Section will have the mission of I bringing the government closer to the people through supervising of information by means of radio, TV, and the press. Secretary to the Constabulary Staff This office falls under the Vice Chief of Constabulary which has the responsibility of coordinating staff activities in the head- quarters and sending directives from the headquarters to the field units. 69 Planning_Division .A program of effective Constabulary services cannot be developed and administered on a day-to-day, or crisis-tO—crisis basis; thoughtful research and careful planning are essential. Wherever possible, needs for Constabulary services should be anticipated and plans for meeting those needs developed in advance. The alternative is to wait until a crisis occurs and then improvise a plan of action. Insufficient atten— tion has been given to planning in the Philippine Constabulary. The planning function has been completely decentralized to the several op- erating units, with the result that plans are develOped for specific needs usually without regard to the total program.78 The objectives of the Constabulary can be achieved most effec— tively and economically through the efficient Operation of three inter- related processes, namely; planning, doing, and controlling. Of these three, planning is most basic. Without it, effective direction,coord- ination and control is impossible.79 The planning division includes all that is sound in the present staff doctrine. It is reSponsible for defining the mission of the Con- stabulary, for determining the means necessary and available for the performance of the mission, and the information Of the schedule that will deliver the means to the operational units. Its sole reSponsibility is planning and it must not preoccupy itself with doing. It will not 7QAISurvengeport, The Police Department of Oakland, California (Chicago: Public.AdminiStration ServiCe, 1952), p. 71. 79O. w. Wilson, Police Planning, Second Edition, (Springfield: Charles Thomas,Publisher, 1957), p. 3. 70 plan duties that belong to a single division but will plan affairs that depend.for their completion on the work of more than one division. Having established and reviewed the plans, it has finished its part in the administration; execution belongs to line units. A section of this division should devote its attention Specific— ally to each of the following critical Constabulary activities: combat operations, criminal investigations, ' traffic control, organization and staffing. Combatggperations Section. The Combat Operations Section is responsible for planning activities which are particularly‘ concerned with combat operations against the Communist-inspired dissidents as well as with Special operations against illegal fishing, agrarian troubles, cattle rustling, armed bands, illegally possessed firearms, and smuggling. This section takes charge of long-range, Operational planning for organization in these fields of activity. Criminal Investigation Section. The Criminal Investigation Section is responsible for planning operations intended to discover evidence, witnesses, and suSpects by a canvass Of neighborhoods and establishments. It will plan to facilitate the arrest and prosecution of suSpects even though the arrest or prosecution may be carried out in part or wholely by Operational units. It will also plan the organi- zation of its branches, schedule of reliefs and assignments, and oper- ating procedures for its members. It should.propose procedural changes in the preliminary investigation of crimes, the search of physical evidence, and the control and routing of investigation reports. 71 Traffic Control Section. The Traffic Control Section is reSpons- ible for planning the operation of a unified traffic safety program including accident prevention, traffic engineering, enforcement, and regulation of drivers and vehicles. The Traffic Education Branch will be primarily responsible for coordinating all the traffic safety education activities of the organi- zation and of outside agencies including the Motor vehicles Office. The Traffic Enforcement Branch should be concerned with enforce- ment and its duties will include the determination of policy on such matters as selective enforcement and distribution of personnel, and study of driving laws and their impact on enforcement, This branch will analyze the accidents, enforcement, and congestion experience and rec- ommend traffic engineering improvement. In addition, it will be charged with formulating recommendations for changes of driving laws and road regulations.3° Organization and Staffing Section. The Organization and Staff- ing Section is reSponsible for laying the plans for the organization of the force so that related tasks and activities are properly assigned according to function to an organic unit of the organization. This section should.prepare and maintain a current organization chart of the units and the manpower alloted to each. It shall recommend revisions in the organization to the Chief of PC as needed for effective operation and control. It should recommend reassignments of personnel and equipment a°.R_eport of angAdministrative Survey, Police Service in.PuertO Rico, (Washington: Public Administration Service, 1951), p. 7 . 72 to the Chief so that the Constabulary may meet current needs with suf— ficient flexibility so as to be readily adapted to new and changing Situations. It should continually study the assignment of personnel and the distribution of equipment and recommend changes so as to ob— tain maximum results. Intelligence and Securitygpivision The Chief of Constabulary must keep himself informed of condi- tions in the country which represent actual or potential hazard to the public safety and, therefore, demand the attention of the Philippine Constabulary. Thesezhclude: the extent to which criminal activities are organized, the presence Of subversive groups which might incite disturbances, riots or dissidence, the degree to which Special pressures or influences are being exerted against law enforcement officers and agencies, and the connections between members of the Constabulary and the criminal and vice elements of the country.81 The Intelligence and Security Division should be charged with gathering of intelligence data pertaining to outlaw bands, and criminals and also intelligence information pertinent to dissident and communist activities in the country. It should operate with minimum.publicity and'with sufficient personnel to follow leads, check known subversive groups and individuals, engage in such undercover investigations as may be desirable and assist Zone commanders in executing their own internal security activities. This division will employ not only atA Survey Report, The Police Department of Oakland1 California (Chicago: Public.Administration Service, 1952), p. 71. 73 trained officers and enlisted men but also civilian agents assigned in various parts of the country to ferret out information vital to the PC to enable it to Succeed in the accomplishment of its mission. Personnel and Training_Division One single factor that strongly influences the quality of Constab- ulary service is the competence of the individual members of the force. The competence of the Constabularymen is established by the method of selection, the adequaqy of their training, the fairness and strictness of their discipline, the manner of promotion to assure competent super- vision and wise, courageous leadership, the absence Of morale—breaking influences and, in short - an effective personnel administration.83 Even given the best organizational structure and the most effective police techniques and methods, the Constabulary cannot render satis- factory service if it has inefficient and incompetent personnel. Personnel Section. The Personnel Section has the major respons- ibility for the following aSpects of personnel management: careful selection of personnel; intelligent classification of jobs; fair dis- ciplinary machinery; reasonable and frequent opportunities for promo— tion; and sound retirement practice. Training Section. It is strongly recommended that the Training Section be organizationally made a portion of personnel administration rather than of operations planning because, logically, training is a 83Raymond B. Clift, A Guide to Modern Police Thinking (Cincinnati: The W. H. Anderson Company, 1956): pp. DO-E9. 7h principal function of personnel management. The functions of person- nel and training both deal.with persons. Training is concerned with instructing members of the organization in the duties of their partic— ular jobs. Personnel, on the other hand, is concerned.with the ques— tions that effect the members of the organization generally in their capacities as members rather than in their particular jobs. 'The Philip- pine Constabulary School should logically fall under the Training Section. SO too, Should the Troop Education Branch. The Military Justice and.PrOfessional Services units of the former Staff Judge Advocate's Office should be placed under the Per— sonnel Section to facilitate legal counselling and disciplinary action of PC personnel. Problems of morale and other welfare activities which are handled by the Special Services Branch, Should also be a portion of the Personnel Management Section. Likewise, the PC Band should be under the Personnel Section for administrative purposes. Records and Fiscal Division It is recommended that all Constabulary records be integrated into one centralized system to enhance effectiveness and faéilitate their immediate use. When records activities are thus concentrated, the smaller number of persons engaged in records activities develops greater skill and training, and facilitates and simplifies supervision and control.84 84o. w. Wilson, Police Administration (New York: McGraw—Hill Book Company, Inc., 1950), p. 250. 75 Records Section. The Records Section should be responsible fOr‘ the complete and accurate keeping of complaints, arrests, and identi- fication records which must frequently be inSpected, followed up, clas- sified, indexed, and filed. The information contained in such records must be tabulated, summarized, analyzed, and compared in order to meas— ure accomplishments, detect weaknesses, and plan Operations. There is a basic principle that dictates that criminal identi- fication facilities be included as a segment of the Records Division.85 The maintenance Of criminal identification records forms anrintegral part of the total records job and is essentially a clerical process. Fingerprints, photographs, and.physical descriptions of criminals and their methods of Operation should.be centrally maintained in the Records Section where they are always available and immediately at hand should need arise for their use. Fiscal and Budget Section. It is recommended that this section should be with the records unit because records supply information use— ful in preparing and supporting budget estimates, and they assist in managing the organization's fiscal affairs. Expenditures are kept with- in limits Of appropriations and accurate payrolls are compiled. The Constabulary program must be able to compete with the programs of other governmental entities for public funds, and it is likely to receive adequate support only when the proposed expenditures are shown in terms of effective policing and.protection against criminals. An 85Ihid., p. 251. 76 adequate budget, of course, is essential to a functional program, so this is a particularly important section to the entire organization. Communication Section. It is proposed that the former Signal Section be consolidated into a Communication Section and be placed under the Records and Fiscal Division to assure a greater fidelity of recording of incidents that call for immediate Constabulary Service. Control of the communication Section is also essential for accurate crime reporting. This section should also be reSponsible for the operation of the telephone switchboard, teletype, and radio network of the organization. Services and Supply_Division The Services and Supply Division is charged.with supporting the operational units and the Headquarters in terms of materials, sundry equipment and supplies necessary to the complete Success of operations. A program.which satisfactorily maintains and repairs property and equipment is essential in promoting efficiendy, morale, and.prestige of the service. Buildings, organization-owned vehicles, personnel equipment, and grounds must be kept in suitable condition at all times. Methods of procurement of property and supplies should be established to assure that commodities are of suitable quality and procured at economical price. These functions are performed by the Quartermaster, Ordnance, and Engineer Sections. Furthermore, this division should carry on the task of the former Logistics Division, the division form— erly charged with the control of the flow of supplies and equipment requisitioned from the various.AFP installations and depots to the dif- ferent PC units in Camp Crame and the field. 77 In addition, the Services and Supply Division renders such vital Services as the physical and moral upkeep of the Constabularymen and their families as provided for by the Medical, Denta1,and Chaplain Services. Manpower Involved in Reorganization The defective organization Of the PC headquarters has led to the employment of man wastefully. Indirectly this is waste of time, too, for the more men are wasted in misorganization, the fewer men can be detailed to do the primary Constabulary tasks of patrolling and policing; and the fewer men devoted to these primary tasks, the more time is consumed in decision making and planning. An organizational structure so poorly built will therefore achieve its purpose only inef- ficiently; and since manpower is the energy that generates any human enterprise, such a structure will only achieve its purpose with a great waSte of energy. Thus waste of manpower is one of the penalties of defective organization.86 Staffing of Divisions and Sections. One Of the advantageous aspects of this proposed reorganization plan is the correSponding reduc— tion of personnel in the headquarters. Manpower, which is a critical item in any police organization, will be distributed among the various entities of the organization in such a fashion that maximum efficienqy can be obtained with the least number of personnel involved. The ap- plication of the sound.principles of organization eliminates the recurrence 86A1vin Brown, The Armor of Organization, (New York: Hibbert Printing Company, 19555, p. 5. 78 of duplication of functions and responsibilities. Sound organization provides the best channel for an efficient, positive and coordinated application of effort with minimum.manpower concerned. As each man in a good organization counts, so it logically follows that no man is left without a function or purpose. Table II presents a proposed distribution of personnel in the Headquarters together with the staffing Of the divisions and sections and the rank structure of personnel. .A comparative study of the data presented in Table II reveals a slight variance with that of Table I as to the authorized strength of commissioned Officers and enlisted personnel. It should be taken into account that in the former organization, the Traffic Control Group and the Philippine Constabulary School were separate units merely attached to the Headquarters of the PC for administration, whereas, in the re— vised organization plan, these units will be among the constituent entities of the organization. Furthermore, there will be a correspond- ing reduction of the strength of civilian personnel to half the present number with the implementation of this reorganization proposal. Thus, this absorption and consolidation of units with related functions will be a major step in achieving manpower economy. It is recommended that the Chief of Constabulary be given the rank of Major General, a rank comparable to that given to the Command- ing General of the Philippine.Arny. This measure is justified by the fact that the present strength of the Philippine Constabulary is 12,000 officers and enlisted personnel and its commanding general should possess a rank commensurate to andworthy of his position. The Vice TABLE II PROPOSED ORGANIZNIION OF THE HEADQUARTERS PHILIPPINE CONSTABULARY UOIQOQS BUTJJBQS‘PUE °u5Jo notices Toaquoo OIJJBJL .935 FAUI TEUTWTJO uorqoes suoiq -Plado neqmoo uoTSTATQ saOTA “JCS PUB Aiddng UOISIAIG IBQSIJ pue SpJOOaH 'AJQ Buiuyerl pue Teuuossed 'AIQ Aqilnoeg pue aouaBTTTaquI UOTSTATQ 6u1uuetd 33918 ‘QSUOO on Needesoas aOTJJO suorieraa OTTqu 801510 uoiqoadsuI mPv/D fihnded 201510 BUId/O Kandau 201;;0 Od/b 801A aOTJJO Dd/D POTJJO h. Lieutenant Colonel 2. Brigadier General 5. Major 1. Major General '- 3 . Colonel ”m0 FiQIFi 6. Captain Lieutenant]. 7. lst or 2nd lO 1 3 8. TOTAL COMMISSIONED H NNN OI oaxjr4 (\I mmmm N (\lNu—i N NH H c—Ir-lr-IH H H H H Hv—Ic—Ic—I FI F4P4 r—Ir-IHv—I .-—I Flt—i r-I HH H H H e4 F4 F4 H H H H r-I c—l ...) II E .p c.p 8n» night: $4 6 On: 0 UIOKA m H 01 U) :4 ASHSAAO asaags ‘4 or! m m -8'D.E