REVIEW HANDOUTS IN

POLICE ORGANIZATION AND ADMINISTRATION

(Reference: PNP Fundamental Doctrine)

Brief History of Police Organization

The term “Police” is derived from the word “POLITIA” which

means “condition of a state, government, and administration.”
Politia, on the other hand, originated from Greek words
“Politeia” which also means government, citizenship, or the
entire activity of a police. During the Spanish regime, peace and
order in a “pueblo” or community is maintained by the Cuadrillos,
Carabineros, and Guardia Civil. The Spaniards decided to recruit
the services of selected “Indios” who were trained as Local
Guardia Civil. When the Americans took over from the Spaniards,
American Scouts controlled the peace and order in every town and
cities within the islands of the Philippines. Later on, they
recruited and trained groups of Filipinos to maintain peace and
order in a given community.

The Philippine Constabulary was created on August 8, 1901

and Capt. Henry T. Allen of the U.S. Regular Army was its Chief
by virtue of Act No. 175. The Philippine Constabulary (INSULAR
POLICE) was organized to serve as the TERRITORIAL FORCE in the
maintenance of peace and order. After the Japanese occupation,
and after the Philippines obtained its independence from the
Americans, the PC was created under the Armed Forces of the
Philippines. Its main task is to maintain the internal peace and
security of the nation.

On September 18, 1966, Republic Act 4864 better known as the

Police Act of 1966 was passed an approved by Congress to
professionalize the police service “to achieve and attain a high
degree of efficiency with the end in view that peace and order
may be maintained more effectively and the laws enforced with
more impartiality. It is also the object of the Act to place the
local police service on a professional level.”

One of the most significant provisions of RA 4864 is Sec. 7

which specifically defined the duties of peace officers:
“Section 7. Duties of Peace Officers – All members of the
police agency shall be PEACE OFFICERS. It shall be their duty to
preserve peace and order; prevent the commission of crimes;
protect life, liberty and property; and arrest all violators of
laws and ordinances within their jurisdictions. They shall
exercise the general powers to make arrest, searches and seizures
in accordance with law. They shall detain an arrested person only
within the period prescribed by law.

On August 8, 1975, PD No. 765 was issued establishing and

constituting the Integrated National Police (INP). Section 1 of
the aforesaid Decree provides:

“Section 1 – Constitution of the Integrated National Police

– There is hereby established and constituted the Integrated
National Police which shall be composed of the Philippine
Constabulary as the NUCLEUS and the Integrated (National) Police
Forces established under the Department of National Defense.”

RA 6975: The Birth of the PNP

 On December 13, 1990, the President of the Republic signed
into law Republic Act 6975 creating the Philippine National
Police (PNP). Incidental thereto, dissolving the Philippine
Constabulary whose officers; rank and file were given the
privilege either to join the AFP or the PNP within the period as
provided therein. The Act was known as “An Act Establishing the
Philippine National Police Under a Reorganized Department of
Interior and Local Government and for Other Purposes”, which
became effective on January 1, 1991.

RA 8551: Police Reform Act

On February 17, 1998, Republic Act 8551 entitled “The PNP
Reform and Reorganization Act of 1998” was enacted to amend
certain provisions of RA 6975. Under this Act, the PNP shall
strengthened and shall evolve into a highly efficient and
competent police force, that is Community and Service Oriented
and fully accountable in the performance of its functions.

CONCEPTS IN ORGANIZATION

An ORGANIZATION is a system of coordinating activities of a

group of people working in a concerted manner towards a common
goal under ONE authority and leadership.

ORGANIZATION is the structure component of administration.

It is normally structured on a superior-subordinate relationship
and therefore, authority is a universal element of all
organizations.

FOUR (4) PRIMAL CONDITIONS OF ORGANIZATIONS

1. Authority – this is the supreme source of governance for

any particular organization. It is the right exercise to
decide and command by virtue of rank and position.
2. Mutual Cooperation/Coordination/Consultation – an
organization exist because it serves a purpose beneficial
to society. This becomes the social legitimacy for the
organization to perform its functions in the society.
3. Doctrine – this defines the organization’s objectives. It
also provides the very source of various actions which
are performed to assure organizational coordination.
4. Discipline – understood as comprising behavioral
regulations, it is impose either by command or self-
restraint to insure supportive behavior from people
composing the organization. Orders within the
organization are enforced by a system of punishments and
rewards.

ELEMENTS OF POLICE ORGANIZATION

All police organizations share the following basic elements:

1. A Span of control;
2. Unity of Command;
3. Delegation of authority;
4. A hierarchy of authority;
5. Set of goals and objectives;
6. System of formal communication;
7. Specialization of tasks or personnel;
 8. Segregation of line, staff and auxiliary functions;
and
9. Method of grouping the activities performed by the
organization.

PRINCIPLES OF POLICE ORGANIZATION

1. Unity of Objective – an organization structure is

effective if it enables individuals to contribute to the
organization/unit objectives.

2. Organizational Efficiency – an organization structure is

effective if it is structured to aid the accomplishment
of the organization’s objectives with a minimum of
unsought consequences or costs.

3. The Scalar Principles – prescribes the vertical

hierarchy of organizations. It defines an unbroken chain
or scale of units from top to bottom describing
explicitly the flow of authority. This principle demands
the following conditions to achieve effective
coordination.

3.1 Unity of Command – it clearly defines

hierarchical system a subordinate is
accountable to one and only one immediate
superior. This is indispensable to achieve
effective coordination. Any violation of this
principle undermines authority, jeopardizes
discipline, disturbs order and threatens stability
in the organization.

3.2 Span of Control – this relates to the number

of subordinates a
Superior can effectively supervise. There is no
determinate
mathematical ratio in superior-subordinate
relationships. A satisfactory span of control is
instead determined by Four (4) Factors combined
situationally:

a. managerial ability of superior;

b. effectiveness of organizational
communication system;
c. effectiveness of management control
exercise over
operations; and
d. organizational philosophy on
centralization versus
decentralization
of authority and functions.

3.3 Delegation of Authority – the process is

accomplished through
the delegation of authority. Scalar process refers
to the growth of the chain in command resulting in
the creation of additional levels in the
organizational structure. Span-of-Control
necessitates delegation of authority.
4. Functional Principle – It prescribes the “horizontal”
growth of the organization. The growth referred to here
is applicable to the LINE as well as to the emergence of
STAFF functions in organizations. The dynamic foundation
of the functional process is called the “division of
labor.” It simply means the breaking up of work into
work-units to achieve specialization. As organization
grows, the job must be divided so that it won’t become
so inclusive to an extent that it could hardly be
performed. Such division must be defined to identify
clear areas of specialization. The reason for the
division of work is to improve the operational
performance of the organization.

5. Line and Staff Principle – Organizations must provide an

orderly arrangement of functions so that objectives can
be accomplished effectively. The Line-and-Staff
Principle provides two basic structures in organization
– the line structure and staff structure. This implies a
system of varied functions arranged into a workable
pattern. Line organizations refer to the direct
accomplishment of objectives. The Staff organization, on
the other hand, refers to the organization that is in an
advisory or facilitative capacity. Those having
relatively unlimited authority over those to whom orders
are given are considered LINE OFFICIALS while those
having authority restricted to their functional area are
called STAFF OFFICIALS.

6. Directorial Staff Principle – It prescribes the

directorial authority of the directorate in the national
and regional headquarters levels and other equivalent
units.
7. Principle of Balance – In every structure there is a
need for balance. The application of principles or
techniques must be balanced to ensure the overall
effectiveness of the structure in meeting organization
objectives.

8. Delegation by Results Expected – Authority delegated to

all individual managers should be adequate to ensure
their ability to accomplish results expected.

9. Absoluteness of Responsibility – The responsibility of

subordinates to their superiors for performance is
absolute, and superiors cannot escape responsibility for
the organization activities of their activities.

10. Parity of Authority and Responsibility - The

responsibility for actions cannot be greater than the
implied by the authority delegated, nor should it be
less.

11. Authority-Level Principle – Maintenance of intended

delegation requires that decisions within the authority
of individual commander should be made by them and not
be referred upward in the organizational structure.

12. Principle of Flexibility – The more provisions are made

for building flexibility in an organizational structure,
the more adequately an organizations structure can
fulfill its purpose.
 13. Principle of Leadership Facilitation – The more an
organization structure and its delegation of authority
enable leaders/commanders to design and maintain an
environment for performance the more they will help the
leadership abilities of those leaders/commanders.

NATIONAL ORGANIZATIONAL STRUCTURE OF THE PNP

The PNP VISION, MISSION and FUNCTIONS

The VISION STATEMENT defines as desired future state to

which all resources of the organization are directed. It states
that:

“The men and women of the PNP are committed to the

vision of a professional, dynamic and highly motivated
PNP working in a partnership with a responsive
community towards the attainment of a safe place to
live, invest and do business.”

On the other hand, the MISSION STATEMENT of the PNP defines

its mandates which are:

“to enforce the law, to prevent and control crimes, to

maintain peace and order, and insure public safety and
internal security with the active support of the
community.”

FOUR LEVELS OF COMMAND IN THE PNP

A. Command Group & Internal Affairs
B. Directorial Staff Group
C. National Support Group
D. Major subordinate command group

1. PNP Command Group and Internal Affairs

The PNP Command Group is headed by the Chief PNP (Director

General), who exercises command and overall direction of the
entire Philippine National Police force. He is assisted by Two
(2) Deputy Chiefs: One for Administration and One for
Operations.

The Chief of Directorial Staff acts as the chief operations

officer of the PNP. He directs, supervises and coordinates the
efforts of the directorial staff and all PNP units in the
performance of their assigned tasks and respective functions.

The Internal Affairs (IAS) assists the Chief PNP in ensuring

operations readiness and investigates infractions/violations of
the regulations committed by members of the PNP. The head of
internal affairs is also known as Inspector General.

2. National Staff Directorate (Directorial Staff)

a. Directorate for Personnel and Records Management (DPRM)

– Assist the Chief, PNP in the management of PNP Uniformed and
Non-uniformed personnel. Responsible for the recruitment,
selection, placement, assignment, promotion and retirement in the
PNP;

b. Directorate for Human Resource and Doctrine Development

(DHRDD) – assist the Chief, PNP in planning and policy
formulation pertaining to individual and unit training, human
resource and doctrine matters for the PNP;

c. Directorate for Comptrollership (DC) – assists the

Chief, PNP in the administration and management of all
budget and finances of the PNP;

d. Directorate for Logistics (DL) – assists the

Chief, PNP in the Policies, plans and management of
logistics in support of the tasks and functions of the
PNP;

e. Directorate for Research & Development (DRD) –

assists the Chief, PNP in matters or research and
development, test and evaluation of self-reliant
projects to include research on criminalistic
equipment, standards for police uniforms and
paraphernalia for possible adoption of the PNP;

f. Directorate for Plans (DPL) – assists the Chief,

PNP in areas of Planning and programming and the
conduct of strategic planning and organizational
development of the PNP;

g. Directorate for Police Community Relations (DPCR) -

assists the Chief, PNP in the formulation and
implementation of police community relations Programs,
projects and activities to support the PNP;

h. Directorate for Investigation and Detective Management

(DIDM) - assists the Chief, PNP in the
coordination, control and management of crime
investigation and detection operations and activities;

i. Directorate for Intelligence (DI) – assists the

Chief, PNP in the effective management of all
intelligence and counter intelligence activities to
support the mission and functions of the PNP;

j. Directorate for Operations (DO) – assists the Chief, PNP

in the exercise of Command and Control (C2),
coordination and supervision of all police operations
including deployment/employment and law enforcement
activities to attain the goals and objectives of the
PNP.

k. Directorate for Integrated Police Operations

(DIPO)- in addition to DO, a DIPO for Northern Luzon,
Southern Luzon, Visayas, Western Mindanao and Eastern
Mindanao has been created. DIPO serves to coordinate and
integrate all police operational efforts in the areas
covered by respective AOR of DIPO.

l. Directorate for Information and Communication

Technology Management (DICTM)- to assists the Chief PNP
in the formulation and management supervision of the
 information and communications technology requirements
of the PNP. (this is new directorate.

3. National Support Units (NSU’s) Level:

The PNP National Support Units (NSUs) are composed of Nine

(9) Administrative Units (AU) and Ten (10) Operational Units
(OU).

a. Administrative Support Units:

Headquarters Support Service (HSS) - provides administrative,

technical and general services including security and welfare of
the National Headquarters (NHQ) of the PNP in Camp Crame;
Logistics Support Service (LSS) - provides logistics support
services to all PNP units nationwide.
Legal Service (LS) - provides legal assistance and service to
Chief, PNP and to all PNP units and personnel;
Finance Service (FS) - responsible for funds disbursement,
accounting, and fiscal duties for the PNP;
Information Technology Management Service (ITMS) - formerly
known as Computer Service (CS) provides computer data-base
services and manage the information technology (IT) system of the
PNP;
Chaplain Service (CHS) - provides spiritual and moral services
and counseling for all the officers and personnel of the PNP;
Communications and Electronics Service (CES) - provides
communications and electronic technology and services in support
to all PNP units;
Health Service (HS) - provides medical and dental services to
all PNP members and their relatives/dependents and qualified
civilians; and
Engineering Service (ES) - responsible for the implementation of
all engineering programs, land acquisition and housing projects
for the PNP.
Training Service (TS) - is a unit under the supervision of the
DHRDD which conduct specialized in-service training for the PNP.

b. Operational Support Units

2.1 Aviation Security Group (ASG) – responsible for the

security
of all airports throughout the country and secure
civil aviations
against all forms of hijacking and terrorism;
2.2 Civil Security Group (CSG) – supervises and
regulates the
Organizations and operations of all security
guard organization,
private or company guard forces. It also
supervises and controls
the licensing and issuance of firearms and
explosives;
2.3 Crime Laboratory Group (CLG) – provides
scientific and
technical investigative aids and services
in support to the
mission and functions of the PNP;
2.4 Criminal Investigation and Detection Group –
undertakes
 investigation, monitoring of prosecution of all
major crimes, to
include syndicated and organized crimes and
those major felonies
under the Revised Penal Code;
2.5 Intelligence Group (IG) – conducts
intelligence and counter-
Intelligence operations and activities in support
to the mission
and functions of the PNP;
2.6 Maritime Group (MG) – responsible for the police
functions
and security over Philippine territorial waters
and rivers against
criminality and lawlessness thereof;
2.7 Police Community Relations Group (PCRG) –
undertakes
and implements plans and programs to encourage
community
and citizen participation in crime prevention,
reduction and
suppression;
2.8 Police Security and Protection Group (PSPG) –
provides
security detail to diplomatic community, foreign
dignitaries and
guests, government officials and private VIP’s
qualified for
protection;
2.9 Special Action Forces (SAF) – serves as mobile
strike force to
augment regional, provincial and municipal police
stations
against internal security operations (ISO),
insurgency, terrorism,
anti-hijacking, hostage taking incidents and
other crises
situations; and
2.10 Highway Patrol Group (HPG) – formerly Traffic
Management Group
responsible for traffic law enforcement
and undertake operations
and investigations against all crimes
involving the use of
motor vehicles along the highways.

4. Major Subordinate Commands: PNP Main Operating Units

For the Main Operating Units (MOU), there are 17 Police

Regional Offices (PRO) nationwide geographically corresponding
to regional subdivisions of the Country. Regions 1 – 13
including Cavite, Laguna, Batangas, and Quezon (CALABARZON) and
Mindoro, Marinduque Romblon and Palawan (MIMAROPA) police
regional offices.

Directly under the 17 Police Regional Offices are 17

Regional Mobile Groups (now known as Regional Manuever
Company); 80 Police Provincial Offices; 20 City Police Offices
in highly urban centers which are equivalent to a Police
Provincial Office.
 The Police Provincial Offices have Provincial Mobile Group
(now known as Provincial Maneuver Platoon) to augment the
internal security operations (ISO) of the province. The
prevailing peace and order condition in the area determines the
assignment of more or less police mobile groups.

Under the PPO are the component cities and municipal police
offices/stations which serve as the main operating arm of the
PNP for law enforcement and maintenance of peace and order.

II. POWERS AND FUNCTIONS OF THE PNP

Pursuant to Republic Act 6975, the PNP is vested with the

following powers and functions:
1. Enforce laws and ordinance relative to the
protection of lives and properties;
2. Maintain peace and order and take all necessary
steps to ensure public safety;
3. Investigate and prevent crimes, effect the arrest of
criminal offenders, bring offenders to justice, and
assist in their prosecution;
4. Exercise the general powers to make arrest, search
and seizures in accordance with the constitution and
pertinent laws;
5. Detain the arrested person for a period not beyond
what is prescribed by law, informing of his rights
under the constitution;
6. Issue licenses for the possession of firearms and
explosives in accordance with law;
7. Supervise and control the training and operations of
security agencies and issue licenses to operate
security agencies, and to security guards and
private detectives, or the practice of their
professions; and
8. Perform such other duties and exercise all other
functions as may be provided by law.

IMPORTANT TERMS TO REMEMBER IN POLICE ORGANIZATION

 Span of Control – the maximum number of subordinates at a

given position that a superior can supervise effectively;
 Unity of Command – the organization should be controlled
be only ONE “BOSS” to insure uniformity and unity of
execution of orders;
 Delegation of Authority – conferring of certain specified
authority by a superior position onto a lower-level
position;
 Hierarchy of authority – it is defined as the
relationship between superiors and subordinates in any
given organization;
 Goals and Objectives – goals set forth a desired state of
affairs to be achieved to meet a societal need. Ex: Army
created to defend/protect the nation; schools to educate;
hospital to take care of the sick; police to prevent
crimes; etc.;
 Formal Communication – it is the process of sharing
understanding and information on common subjects. An
intercourse through a channel between two or more people
by means of words, letters, symbols or messages for
 purposes of exchanging facts, knowledge, ideas or
opinions.
 Specialization of Tasks or Personnel – the assignment of
particular personnel to a particular task. It is
characterized by specialization of jobs (areas of
specialization) and specialization of people
(specialist).
 Specialization – the assignment of particular personnel
to a particular task. It is characterized by
specialization of jobs (areas of specialization) and
specialization of people (specialists).
 Hierarchy of Authority – it is defined as the
relationship between superiors and subordinates in any
given organization.
 Line, Staff and Auxiliary Functions – line functions are
the backbones of the police organization. Ex: patrol,
investigation, traffic, intelligence, juvenile control.

Line Function – carry-out the major purposes of the

police department; delivering the services provided by the
department; dealing directly with the clientele;

Staff Functions – are designed to support the functions

e.g. research,
planning, legal, internal affairs, etc;

Auxiliary Functions – involve the logistical operations

including records, communications, jail service, maintenance
and transportations.

Note: The Line, Staff and Auxiliary are known as the

tripartite classification of functions.

4. The CHAIN-OF-COMMAND – A unit director exercises his

authority and responsibility through a “chain-of-command.” A
chain of command is consist of three different levels of
follow:

a. The Top Echelon – the top-most level where the overall

responsibility and authority whereby subordinate
commands and units are placed. The Command Group
composed of the Chief, PNP (C,PNP); the Deputy Chief for
Administration (DCA); the Deputy Chief for Operations
(DCO); and the Chief of the Directorial Staff (TCDS);

b. The Middle Echelon – the next lower echelon constitutes

such subordinate command units apportioned by the
commander in order to accomplish his tasks. The National
Support Units (NSU), regional, provincial, city,
district police offices compose the MIDDLE ECHELON. This
echelon is further categorized below:

i. Top Middle Echelon – NSUs, Regional Offices;

ii. Intermediary Middle Echelon – Provincial/City
Police Offices; and
iii. Lower Middle Echelon – Provincial/City District
Offices.

c. The Lower Echelon – the lower echelon is comprised of

the subordinate units further apportioned by subordinate
commanders, such as the City and Municipal Police
Stations.
GUIDELINES IN STRUCTURING COMMAND ORGANIZATIONS

1. Division of Work – refers to the breaking up work or

function into its fundamental component part to increase
specialization at the lower levels of command.

2. Goal Orientation – the grouping of functions should be

oriented towards the accomplishment of the goals of the
organization.

3. Levels of Authority – should be minimal if possible so

that the chain-of-command will be shortened.

4. Simplicity – an organization must be structured simply to

be lean and mean.

5. Unity of Command – means that a subordinate is

responsible only one commander and orders that come from
the top echelon must be the same orders to be passed on
the lowest echelon in the organization. It is important
that only one man be in complete command of each
situation and that only one man be in direct command or
supervision of each officer.

6. Responsibility and Authority – areas of responsibility

should be clearly defined and the location of authority
logically established at every level in the organization.

7. Span of Control – the ability of one man to direct,

coordinate and control immediate subordinates. There are
two kinds of span-of-control: broad and limited span of
control.

8. Balance and Symmetry – balance and symmetry in

organizational structuring should be observed with the
other principles or organization.

9. Equality – responsibility comes when there is

commensurate authority and vice-versa to specify limits
so that abuse of power of authority will be prevented.

10. Homogeneity – homogenous or similar grouping of work

should give way to necessary division where grouping will
result in placing together works which by their nature
are incompatible.

11. Duplication and Overlap – overlapping of function of

work and duties should continually be avoided because of
responsibility of several units, actually results to
responsibility of no one.

OTHER ORGANIZATIONAL TERMINOLOGY

To fully understand an organization and its structure and

components or
parts, the following terminologies are defined:
  Chief Superintendent (Chief of Police);
 Senior Superintendent (Deputy Chief);
 Superintendent (Division Chief);
 Chief Inspector (Assistant Division Chief);
 Senior Inspector (Section Chief);
 Inspector (Unit chief);
 Senior Police Officer (Shift-In-Charge); and
 Police Officer (Patrol Officer/Detective).

TITLES OF ORGANIZATIONAL UNITS

Functional Units: Functional divisions of the department are

described in the following terms:

1. BUREAU - the largest organic unit within a large

department. Each Bureau is comprised of a number of
divisions.

2. DIVISION – a primary subdivision of a bureau or of the

Chief. A division has a department-wide function either
for general police service or for specialized activity.

3. SECTION – functional units within a division.

4. UNIT – when further specialization is needed, the section

can be divided further into units.

5. TERRITORIAL UNITS – territorial divisions of the

department are described as follows:

5.1 Post – a fixed point or location to which an

officer is assigned
for duty, such as an intersection or crosswalk
for traffic duty; a
spot or location for general duty,
observation and surveillance or
for the apprehension of a wanted person or
about to commit a
crime; or the designated desk or office.

5.2 Route – a length of street or streets, designated

for patrol
purposes. A route is most frequently used for
assignment of
traffic officers or assignment for foot
patrol officers.

5.3 Beat – an area, in contrast to a route, assigned

for patrol
purposes, whether foot or motorized. It is
also sometimes used
for the assignment of motorized traffic
officers instead of a route

5.4 Sector – an area containing two or more beats,

routes or posts.
The squad of officers assigned to a sector
is headed by a
sergeant.

5.5 District – a geographical subdivision of the city

for patrol
 purposes usually with its own station. A
district is usually
headed by a captain.

5.6 Area – A section or territorial division of a large

city each
comprised of a designated districts headed
by an area
commander.