4 L I~a aijassIFlEll 49 SUMMARY (73701 V/ PH ILIPPI NE LAW ENFORCEMENT DrOLASSIIED PEA YA/PI OFFICE OF PUBLIC SAFETY Agency for International Development Department of State Washington, D.C. 20523 A.I.fD. Reference Center Room 165 S SUMMARY PHILIPPINE LAW ENFORCEMENT XA/PI U.S.A.I.D. OFFICE OF PUBLIC SAFETY Agency for International Development Department of State Washington, D.C. 20523 01aS1Rfl b SURVEY PHILIPPINE LAW ENFORCEMENT FRANK E. WALTON, AID/OPS (WASHINGTON) TEAM CHIEF GERALDINE L. JELSCH, STAFF ASSISTANT - PAUL KATZ, AID/OPS (WASHINGTON) TELECOMMUNICATIONS GEORGE E. MILLER, AID/PSD (BRAZIL) TRAFFIC MANAGEMENT LOUIS P. LABRUZZA, AID/PSD (EQUADOR) LOGISTICS & SUPPLY PAUL T. RILEY, AID/OPS (WASHINGTON) CRIMINAL INVESTIGATION WALTER E. KREUTZER, AID/PSD (PHILIPPINES) RECORDS & IDENTIFICATION ELLIOTT B. HENSEL, AID/PSD (ETHIOPIA) CRIMINALISTICS FENELON A. RICHARDS, U.S. DEPARTMENT OF CUSTOMS COLONEL SAMUEL PESACRETA, USAF, DOD/SACSA MAJOR ALVIN 0. HALL, JR., USA, DA/OTPMG CATHY NELSON, SECRETARY 15 DECEMBER 1966 iii/iv AivelAw DEPARTMENT OF STATE AGENCY FOR INTERNATIONAL DEVELOPMENT WASHINGTON, D.C. 20523 January 13,1967 Mr. Wesley Haraldson Director, U. S. AID Mission to the Republic of the Philippines c/o American Embassy Manila, Philippines Dear Mr. Haraldson: Submitted herewith is the Summary portion of the Survey of Philippine Law Enforcement, which you asked the Washington Office of Public Safety to make after a formal request to you and the Ambassador by His Excellency, President Fernando Marcos. In order to assemble the best possible talent for this Survey, Public Safety technicians were brought to the Philippines from Ethiopia, Brazil and Ecuador, as well as from the Washington Office of Public Safety Headquarters; and the Team included representatives of the U. S. Bureau of Customs and the U. S. Department of Defense. The recommendations contained in this report would, if carried out, greatly improve the effectiveness of law enforcement in the Philip­ pines. Responsibility for implementation, of course, rests with the Government of the Philippines. During the course of our short (three months] stay in the Philippines, members of the Team have visited 35 of the 57 Provinces, 32 of the 47 Chartered Cities and some 75 Municipalities; the National Headquarters, all four Zone Headquarters, 35 Provincial Headquarters and a considerable number of Company and Detachment establishments of the Philippine Constabulary; the National Headquarters, all ten Regional Headquarters and a number of Sub-Regional Headquarters of the NBI; the Natifnal Headquarters and 16 of the 22 Regional Customs Offices. It is believed that the Team was able to identify many of the major peace and order problems in the Philippines and that the recommendations proposed are sound. We are deeply appreciative of the full cooperation extended to the Team by the AID Mission. Our stay in the Philippines has been pleasant -- we trust that it will also prove to have been productive. very truly, Frank E. Walton, Chief Law Enforcement Survey Team v/vi TABLE OF CONTENTS Page ACKNOWLEDGEMENTS ... ix SUMMARY OF GENERAL FINDINGS . INTRODUCTION.................. SUMMARY OF MAJOR RECOMMENDATIONS....... Chapter I - Background ............... Chapter II - Peace and Order Situation in the Philippines Chapter III - Local Government in the Philippines ... Chapter IV - Sociological Aspects of Criminality.... Chapter V - Subversion ............... ........... Chapter VI - Political Development in the Philippines . Chapter VII - Law Enforcement Administration . Chapter VIII - National Bureau of Investigation . Chapter IX - Philippine Constabulary ......... Chapter X - Local Police . Chapter XI - Training ................ Chapter XII - Criminal Investigation .......... Chapter XIII - Criminalistics .............. Chapter XIV - Telecommunications ........... Chapter XV - Logistics and Budget ........... Chapter XVI - Traffic Management ........... Chapter XVII - Records and Identification . Chapter XVIII - Customs Enforcement .............. Chapter XIX - U. S. Assistance to Philippine Law Enforcement Agencies ... 119 vii/viii as ACKNOWLEDGMENTS Many persons and organizations assisted in and contributed to this study by providing information and data. Although it is customary to acknowledge by name the contributions of such individuals, in this case the list would easily exceed a thousand and is simply too long for such specific acknowledgment. The Team's approach was to gather facts, exchange views, solicit ideas, and then distill this information with our own professional back­ ground and thus attempt to present practical, meaningful and achievable recommendations. Almost without exception, the Team was accorded fullest, whole­ hearted and open cooperation. For this cooperation the Team is ex­ ceedingly grateful. ix/x a SUMMARY OF GENERAL FINDINGS Peace and order in the Philippines is deteriorating at a serious rate. In all law enforcement agencies, Philippine Constabulary, National Bureau of Investiga­ tion, the Customs Enforcement Service and the Local Police, performance is sub-standard, training is inadequate, political interference is common; facilities, budgets and logistical support are deficient; inspection procedures are nonexistent or unsatisfactory, morale is low. Despite such defects, these agencies have numbers of dedicated, capable and highly motivated personnel who are conscientiously endeavoring to improve national and local law enforcement in the fack of formidable obstacles. An overview of national efforts in law enforcement is characterized by the lack of totality of'commitment and the continuing tendency to meet exigencies by shoring up or layering over already ineffective practices. Nowhere was this more evident than in the practical impossibility of securing a comprehensive view of national criminality due to the lack of accurate statistical data. Here can be found all the defects of inter-agency en­ mity, inadequate communications, confusion in reporting requirements and lack of validity in results. Since WW II, with few exceptions, existing agencies have not been afforded the public and government support required to reach sustained effective performance. These agencies can successfully combat rising criminality, but only if supported to the degree necessary to reach designed effective performance levels. A gloomy view of law enforcement in the Philippines is amply justified. The most competent of law enforcement agencies is foredoomed to failure if venality and corruption impede the government structures, the judicial processes are unresponsive and the econ­ omy cannot sustain essential support. Philippine law enforcement agencies generally need: * Major improvement in interagency coordination * Freedom from political interference at all levels * Resolute redirection of effort and leadership * Improved training at all levels * Increased technical and material assistance * Improved and adequate facilities and equipment 1/2 INTRODUCTION The request for this survey of Law Enforcement in the Philippines came from newly, elected PresidentMarcos shortly after hetook office. Thehigh priorityhe gave to it is indi­ cative of the concern with which he viewed the rising tide of criminality in the Philippines. The Philippines has a history of steadily rising violence, disorder and disturbances, commencing with the cessation of hostilities in 1946. Responsible government officials have declared that lawlessness had grown to such an extent that it was impeding social and economic development. Over a period of years, the internal security situation has been the subject of con­ siderable concern, both in Washington and at the Country Team level in the Philippines. As a result of this concern, AID/W sent a team to Manila in October, 1964 to survey the Manila Police Department. That survey listed 170 recommendations for improvement of the MPD. After a slow start, some 50 of these 170 recommendations have been, im­ plemented. Since 1964, several agencies have expressed concern over the continuing deteriorat­ ing law and order situation: CINCPAC; the AID Senior Evaluation Team in June 65: the Hoopes appraisal of the MAP Program. All express varying degrees of concern over the Law and order situation, with the AID Evaluation Team stating that the serious internal security problem threatened to develop into a "state of anarchy" if not effectively countered. A joint interagency review and follow-up of the Hoopes Report agreed that an across­ the-board survey of law enforcement in the Philippines was in order. In April 1966 the Director, Office of Public Safety, accompanied by the Ambassador and the Director, tSAID, Philippines, called on President Marcos and reviewed for him the scope of an in-depth law enforcement survey. The President said that he had been "searching for three months$' for some place to start on a general police and law enforcement improvement effort and that such a study in depth would be an ideal way to begin. After an exchange of messages, a Survey Team was dispatched to the Philippines in July, 1966. A total of 10 team members from several countries, for example, Ethiopa, Ecuador and Brazil, conducted the survey which was completed by the middle of October, 1966. There are those who contend that the situation in the Philippines has gone beyond the point of no return, that the state of corruption, hoodlumism and gangsterism is such that it has infested every element of the Philippine social, political and economic structure to the point that