No.

26 2003 3

The Present Police Organizations of Japan and the Philippines:

Administrative Point of View
Jennifer Magno Manalo

Keywords:

Administrative Point of View, Police, Organization, Japan, Philippines

Table of Contents
I. Introduction
II. Discussion
a. Nature and Background of Organization: Definition, Theories and Principles
b. General Profile of Japan and the Republic of the Philippines
c. Police as a concept
d. Brief History of the Police of Japan and the Philippines
e. The Organizational Structure, Organizational Set up, Function of Each Offices and Officers of
Japan and the Philippine Police
1. Japan Police Organization
National Public Safety and Commission
National Police Agency
Attached Agencies to the National Police Agency

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The Regional Police Bureaus
The Prefectural Police Organizations
The Prefectural Public Safety Commission
The Metropolitan Police Department and Prefectural Police Headquarters
2. Philippine Police Organization
National Police Commission
National Public Safety and the Philippine National Police Academy
Philippine National Police
Internal Affairs Services
Directorial Staffs
Administrative Support Services Units
Operational Support Units
National Capital Region Police
Regional Commands
Local Government Executives Administration to the Philippine National Police
Womens Desks
The Peoples Law Enforcement Board
f. Rank Classifications in Japan and Philippine Police Organizations
III. Summary and Conclusions
IV. References

I. Introduction
Organizations regardless of their nature have various characteristics and features whether public or
private. Each has its own way of administering the whole organization from the top to the bottom, staff
and line functions, depend on the system, rules, procedures and policies that the organization practiced
and applied.

Some have a centralized system and others are decentralized which are basically controlled per se by
the top management without specific delegations of authority from top to the bottom. It is usually the

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top management that has direct supervision in the performance of their own duties and responsibilities.

The present scenario in societies whether industrialized, developed, underdeveloped, rich and poor
countries experienced various problems.

National security, peace and order, protection of the lives of

the people, properties, house, buildings etc., are some of the issues, which the people expect that their
government can provide. People are observing whether these expectations are being realized
particularly in those countries, which place importance in democratization.

The police force is one of the most important agencies of every government in that it gives protection,
security, peace and order in society. Basically they perform their duties and functions based on the call
of society or depending on the stated law provided by their laws, the fundamental law of the land, the
constitution and their police laws. In an authoritarian government, the leader with his sole power and
authority usually controls the police.

This paper introduces not only the nature and background of the police concepts, a countrys profile, a
brief history of the police organizations of both Japan and the Philippines, but also gives information on
the administrative point of view concerning the police organizations; functions of each police officers
from top to bottom, rank classifications, the differences of the systems followed by each countries,
whether they have a centralized or decentralized form.

The various offices, which are essential, for the discussion of Japans police organizations are the
following: National Public Safety and Commission, National Police Agency, Agencies Attached to the
National Police Agency, The Regional Police Bureaus, The Prefectural Police Organizations, The
Prefectural Public Safety Commission, The Metropolitan Police Department and Prefectural Police
Headquarters, whereas, in the Philippine Police Organizations. The following are essential for
discussion: National Police Commission, National Police Commission Staff Services, Disciplinary
Appellate Boards, National Police Organization, Provincial Police Organization, Regional Police
Organization, Municipal Police Organization, Philippine National Police Academy, National Public
Safety Commission, Internal Affairs Services, Womens Desks and Local Government Executives
Administration to the Philippine National Police.

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A discussion of the offices within the police organizations of Japan and the Philippines will guide the
readers- those students, researchers and those who have an interest in this field helping them to
understand these offices as what they are as organizations and will give them an idea as to on how the
police organizations work and act as organizations.

Finally, some administrative theories are also included for further analysis of the police organizations of
both countries.

II. Discussion
a. Nature and Background of Organization: Definition, Theories and Principles,
Centralization and Decentralization

Several authors have their various definitions of organization. Each has discussed their respective
definitions of the term and the explanations of the other related concepts in organization.

To start with the concept, an organization as has been stated in the Dictionary of Political Analysis
(1982), is a social group having some kind of structure designed to achieve collective goals. Some
scholars hold that the organization may refer to any complex system of human interaction, regardless of
the existence of collective goals.

In formal organizations, the role relationships among members are

explicitly stated while informal organizations evolve from repeated contracts among people without any
express statement of goals or defining roles. Organizations provide the basis for purposeful collective
activity in political life. Governments and their subdivisions are formal organizations, as are the
pressure groups that seek to influence governmental policy, and the international agencies operating
within the global arena.

In the Basic Definition of the Organization written by Carter McNamara (1999), she wrote, basically
an organization is a group of people intentionally organized to accomplish an overall, common goal or
set of goals. The members of the organization often have some image in their minds about how the

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organization should be working, how it should appear when things are going well. An organization
operates according to an overall purpose, or mission. All organizations operate according to overall
values, or priorities in the nature of how they carry out their activities. These values are the personality,
or culture, of the organization. Its members often work to achieve several overall accomplishments, or
goals, as they work toward their mission. The organizations usually follow several overall general
approaches to reach their goals and have major subsystems, such as departments, programs, divisions,
teams, etc. Each of these subsystems has a way of doing things to, along with other subsystems, achieve
the overall goals of the organization. Often, these systems and processes are defined by plans, policies
and procedures.

In the International Encyclopedia of the Social Sciences edited by David L. Sills (1972), the article
regarding organizations written by Peter M. Blau the first part, of which deals with the theories of
organizations, comments on the definition of the organization. He states that an organization comes
into existence when explicit procedures are established to coordinate the activities of a group in the
interest of achieving specified objectives. The collective efforts of men may become formally organized
either because all of them have some common interests because a subgroup has furnished inducements
to the rest to work in behalf of its interest.

In addition to the explanations mentioned above, Dr. Avelino Tendero (1994) cited that there are
several ways of viewing the term organization. The meaning that one gives or attaches to it depends
upon his perception and administrative orientation of what is expected to achieve, the mechanisms
required to achieve it; the cost it will entail the time framework needed to accomplish results. With
business organizations where profit-motive is the primary goal, its structure is different from that of the
government bureaucracy where service clientele is the paramount concern. Organization theory may be
perceived as a composite of concepts, approaches and generalization regarding organization in the
context of a given environment.

The definitions given by the authors on the concept of organization emphasized the goals, expectations
and objectives can be achieved through the common interest, collective interaction, the peoples
intention to organize a group and form an organization with the explicit and clear instructions,

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procedures, plans and policies, which is the formal organization and the opposite is the informal
organization.

The business organization, which is profit-oriented, is contradictory to the government organization as

it is a service-oriented in principle.

Both public and private organizations have as their common end

and the welfare of the organization, however, the government organization particularly in a democratic
society has concern primarily for the people who deserve to be taken care of, by the government.

Moreover, there are other concepts of organization, which are essential in administration.

These

would determine how a certain organization be viewed on its totality as organization, its functions,
roles and responsibilities, culture, orientation etc. The organization can be examined thoroughly with
the support of the following administrative theories:

There are two forms of administration strategies: centralization and decentralization. Centralization as
noted by Kenneth Janda (1980), is the distribution of power and control within the center, the decision
is controlled and concentrated by a single chain of command and thus the authority is within a smaller
number of individuals. In the Dissemination notes on the Conflict Prevention and Reconstruction Unit
and Reconstruction Unit prepared by Robert P. Beschel (2002), centralized system tend to have a
senior civil service cadre who rotates between agencies and departments. This senior cadre is managed
by a central personnel unit, which also has responsibility for setting personnel policy and fixing terms
and conditions across the civil service. Prof. Hector De Leon, conversely, (1999) defined
decentralization as the process of transferring basic powers from the national to local governments to
allow maximum participation of the citizens in governmental and community activities. In the paper
of Prof. Alex Brillantes Jr., edited by Prof. Miranda (1997), he stated that it is the transfer of
responsibilities for the delivery of basic services of the local government units, including appropriate
personnel, assets, equipment, programs and projects.

With the definitions given, the two administrative strategies are precisely contrary to each other:
centralization focuses mainly on the decision-making, leadership, responsibilities and accountabilities
of the top or the central administration within the organization while decentralization, allows the middle

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and the low management level to participate in the decisions as the central administration transfer the
responsibilities, accountabilities to the lowest level of organization, encouraging them to use their
authorities and discretions in the promotion of collective effort and initiative.

b. General Profile of Japan and the Philippines

Japan and the Philippines are both part of the Asian continent. Japan is near the northern part of the
Philippines, which is near the southern part of Japan across the Pacific, 4 hours by airplane from Manila
to Tokyo. Japan and Philippines are archipelagos as both countries are composed of, and surrounded by
islands and waters: territorial, national and inland waters such as seas, rivers and others.
Philippines are both agricultural nations, with numerous mountains and volcanoes.

Japan and the

Both countries

experience natural disasters such as earthquakes, volcanic eruptions, typhoons, and floods. Japan
consists of four seasons such as spring, summer, fall and winter, whereas, the Philippines is a tropical
country which principally has rainy and dry seasons. Japan is divided into Tokyo To, Hokkaido, Osaka
Fu and Kyoto Fu, and 43 ken (prefectures). The Philippines is divided into 12 regions, CAR (Cordillera
Autonomous Region and ARMM (Autonomous Region of Mindanao Region). The capital of Japan is
Tokyo, as Philippines is Manila. The total population of Japan as of November 2002 is 127.620
millions and as of July 2001, the Philippines has a close population to 83 millions. (Source:
Understanding Japan, A Teachers and Textbook Writers Handbook on Japan, International Society for
Educational Information, Inc., Japan, 1993, Statistical Handbook of Japan, Statistics Bureau and
Statistics Center, Ministry of Public Management, Home Affairs, Posts and Telecommunication, 2002,
National Statistics Office, Republic of the Philippines/http://www.census.gov.ph, 2003)

Though both are Asian countries, Japan is basically homogenous while the Philippines are a
mixed-culture. However, Westerman and Burfiend quote Reiscauer (1988) who says, The modern
Japanese are a mixture of Asian peoples who flowed into Japan from northeast Asia, through Korea,
especially during the first 7 centuries of the Christian era.

Various countries such as Spain from 1521 to1898, the United States and others however, have
colonized the Philippines. Both countries were occupied by the United States; Japan from 1946 to 1952

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and the Philippines from 1898 to 1946, which afterwards assumed full sovereignty. Furthermore,
Japans national language is called Nihongo or Japanese, with 3 different kinds of writing, hiragana,
katakana (borrowed from foreign languages) and kanji (Chinese characters with various origins,
readings and meanings).

However, the Philippines national language is Filipino, officially based in

Tagalog and English. English is being used for official communication and instruction and this is
widely spoken in the country and in part the Spanish language has been used, as some of the Filipino
words derived from Spanish.

Filipino writing is in romanji or in alphabets.

Moreover, Japan is an industrialized country whereas the Philippines is a third world country.
According to the Philippine Development Assistance Inc., (2001), The top 20% of the population own
80% of the nations wealth. Japan gives its assistance to the Philippines through ODA.

In the History

of ODA stated in ODA Summary of 1994, it is written that Following the completion of the payment of
reparations to the Philippines in 1976, Japan has announced five consecutive medium-term ODA targets
covering the years from 1978 to date, under which it has increased its ODA step by step.

As both countries have been occupied by the United States, Japan and the Philippines are both
democratic as described by their respective constitutions, patterned from the democracy of the United
States. Both countries governments are fundamentally divided into three powers such as executive,
legislative and judiciary. Even though similar in terms of the form of government, they are different in
the organizational structure; Japan being considered as parliamentary while the Philippines has a
presidential system. Japan is represented by the emperor as ceremonial head of the state, with no
governmental powers. The Prime Minister as the head of the government has full authority and power
in governmental affairs. The Philippines has a presidential system, the President, whom directly
elected by the people, represents the country and performs the duties and functions both as head of the
state and as head of the government. (Source: Manalo, Jennifer M. 2001, An Overview of the
Philippine Political System under the 1987 Philippine Constitution, Niigata University, Japan) Noda
(1992), stated that the Prime Minister is chosen by the Parliament among parliamentarians, Article 66
of the Constitution of Japan. The functions and powers are specified explicitly on their fundamental
laws of the land, which is the constitution. Manalo (2001) also stated the President may be removed
from office through impeachment. (Noda, 1992)

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However, the Prime Minister can be removed

 No.26 2003 3

through vote of no confidence.

c. Police as a Concept

The term police was derived from the Greek word POLITIA, which means the condition of the state,
government and administration. Politia means that government, citizenship, or the entire activity of a
polis or what we called a city.

As quoted by Tradio (1994), the term police in the broadest meaning refers to the internal
organization or regulation of a state, the control or the regulation of a state, the control and regulation
of a community or state through the exercise of the constitutional power of the government.

In the less broad sense on the other hand, it indicates the power of the government that is concerned
with the maintenance of tranquility, public order, peace security of persons and property, and the
protection of public health and morale.

In the very restricted sense, the word police refers exclusively to that body of armed men which as an
institution, is capable of exercising its duties by armed physical force in the prevention of crime and the
execution of laws. ( Tradio, 1994)

With the definitions mentioned above, the basic purpose of the police service with respect to the actions
and behavior of human beings can be formulated. According to Cirilo Trabio (1994) there are at least
four different types of criminal behavior and these are the major crimes like: homicide, murder, rape,
robbery, arson, kidnapping and many others; offenses against public morality like: vice, gambling,
prohibited drugs, and others; offenses which have something to do with the maintenance of peace and
order like: illegal possession of weapons, vagrancy, trespassing, assaults and other similar offenses.
Also, he emphasized that the following are also police activities: the prevention of criminality,
repression of crime, apprehending offenders, recovery of stolen property, regulation of non-criminal
conduct and performance of related miscellaneous service.(Tradio, 1994)

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Besides, he also specifically discussed that there are two fundamental theories of police service, the
Continental Theory and the Home Rule Theory. The Continental Theory, has a centralized pattern and
has been emphasized wherein the police are servants of the higher authorities, and the people are have
little or no share at all of their duties, nor any direct connection with them. This system prevails in
France, Italy, Spain and other states with centralized systems. On the contrary, in the Home Rule
Theory, policemen/women are considered servants of the community, who depend for the
effectiveness of their functions upon the express wishes of the people. Policemen are civil employees
whose primary duty is the preservation of the public peace and security. The United States of America
and England practiced this decentralized system. (Tradio, 1994)

d. Brief History of the Police of Japan and the Philippines

Japan

From 1600 to 1868, (that is the Edo period), there was a developed police system introduced by the
Tokugawa shogunate, in which the town magistrates who had samurai status, acted and served as chiefs
of police, prosecutors, and criminal judges. This system was developed through the efforts of the
citizens groups such as the gonigumi (five-family associations), composed of groups, who
cooperatively work together with each other and are legally responsible to the government for the
activities of their membership. (A Profile of A Nation, 1994)

The Home Ministry was established in 1873, which is after Meiji Restoration. Japan followed the
French police system during the Meiji era and at that period; the police were organized in a highly
centralized manner, controlled by the Police Bureau within the Home Ministry. The Special Higher
Police (Tokubetsu Koto Keisatsu or Tokko) was established in 1911 and in 1928 this special higher
police was strengthened and the Peace Preservation Law was introduced. During World War II, a
special police force was organized for the purpose of suppressing forms communism and socialism such
as parties and unions. This was supposed to encourage the nation and this was also a need to control the
information and ideology. The freedom of meeting and assembly was recognized. After World War II,
the General Headquarters through the law passed by the Diet, dated December 17, 1947; enacted the

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Police Law and then amended it in 1951. In it the municipal police were able to join with the national
police. On June 8, 1954, the law was passed and took effect on July 1 of the same year and again this
police law was amended. The police are placed under the control of the civilian and minimize the scale
of the police. There were two types of police organizations during that period: the city police and the
national police. Also, the Security Committee was established, wherein it is composed of the members
of the city representatives. However it did not work well, and in 1954, the Japanese police system was
revised and the New Police Act was established. On this New Police Act, the city police and national
police was abolished as it became centralized and integrated. Until now, this centralized and integrated
police system had been adopted and continuous to functions. (United States Library of Congress
Country Studies Series,

Noda, 1992,

Aldous, 1997)

Philippines

The Philippines during the Spanish Occupation was under the military control of the Spanish Colonial
Government, which had a centralized power to control the Guardia Civil or Civil Guard, who performed
the dual function of soldier and a policeman. In 1712, the Carabineros de Seguridad Publica or The
Police Public Security was organized, followed by the Royal Decree of January 8, 1836, the
Guardrilleros or the Rural Police was organized in each town or municipality. Through the Royal
Decree of December 1842, Cuerpo De Carabineros de Seguridad Publico or The Police Public
Security Organization was organized. After 10 years, on February 12, 1852, the Guardia Civil was
created through a Royal Decree issued by the Spanish Crown, composed of Filipino policemen
organized in each province.

During the American Occupation, the Philippine National Police was organized though the
recommendation of the Philippine Commission to the Secretary of War to organize an Insular Police
Force on November 30, 1900. It was on July 18, 1901, that the Commissions recommendation
approved and passed Act No. 157, entitled, An Act Providing for the Organization and Government of
Insular Constabulary, Philippine Constabulary by Section 1, under Act No. 255, on October 2, 1901.
On September 8, 1966, the reformation and professionalism of the police force was officially
recognized, in the Republic Act No. 4864, otherwise known as the Police Act of 1966. It was during the

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Marcos regime when the Presidential Decree No. 765 was issued on August 8, 1975 and established the
Philippine Constabulary/Integrated National Police as a national police force.

Later in 1986, after the Edsa Revolution I, a new constitution was promulgated, known as the 1987
Philippine Constitution; it provides

the police is national in scope and civilian in character, which

President Corazon Aquino signed into law, Republic Act No.6975 entitled, An Act Establishing the
Philippine National Police under a Reorganized Department of Interior and Local Government and for
other purposes. This law was amended on February 25, 1998, when the Congress passed into law,
Republic Act 8551, an Act Providing for the Reform and Reorganization of the Philippine National
Police. (Source: Philippine National Police History, Philippine National Police Official Website:
http://www.pnp.gov.ph; National Police Commission Official Web-site, Napolcom,
htt://www.napolcom.gov.ph;Ibid: Tradio, 1994)

e. The Organizational Structure of Japan and the Philippine Police

Figure 1

Prime Minister
National Public Safety Commission
A Chairman (Minister of State)
and 5 members
Commissioner General
Deputy Commisioner General

CommissionerGeneral's
Secretariat

International
Affairs
Department
International
Cooperation
Division

Interpol
Division

Community
Safety Bureau

General
Affairs
Division

Personnel
Division

Finance
Division

Education and
Training
Division

Allowance and
Welfare
Division

Equipment
Division

Community
Safety
Planning
Division

Criminal
Investigation
Bureau

Traffic
Bureau

Security
Bureau

InfoCommunication
Bureau

Security
Planning
Division

Info-Comm.
Planning
Division

1st Public
Safety
Division

Information
Management
Division

Juvenile
Division

2nd Public
Safety
Division

Comm.
Operation
Division

Consumer and
Environmental
Protection
Division

3rd Public
Safety
Division

Comm.
Facilities
Division

Firearms
Control
Division

Security
Division

Drug
Enforcement
Division

Foreign Affairs
Division

Community
Police Affairs
Division

Organized
Crime
Control
Department
1st Organized
Crime Control
Division

Source: National Police Agency Journal, 1998

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2nd Organized
Crime Control
Division

Investigative
Planning
Division

Identification
Division

1st
Investigative
Division

2nd
Investigative
Division

 No.26 2003 3

1. Japan Police Organization

The Police Law of Japan (1972) provides that the national government has the power to establish a
central police organization, which has the control and supervision of the police of the prefectures on
matters of public concern. Each prefecture can carry out its police duties and functions for the
protection of the life, property and for the maintenance of public safety and order within the prefectural
division. (National Police Agency of Japan, 1998 / http://www.npa.gojp, The Police Law of Japan,
1972)

As explained by Prof. Moriyama Tadashi (1993), the police structure consists of the national police
and the prefectural police. The national level police organizations are the National Public Safety
Commission (NPSC) and the National Police Agency (NPA).

National Public Safety Commission

Under the Police Law of Japan, the National Public Safety Commission is responsible for the
administrative supervision of the National Police Agency. Even though, the NPSC is under the
jurisdiction of the Prime Minister, the Prime Minister does not directly control it, this ensures that there
is no political influence and the NSPC as an organization maintains its independence. (The Police Law
of Japan, 1972)

Article 5 of the Police Law of Japan (1972) states that The National Public Safety Commission shall
take charge of police operation relating to the public safety of the nation, administer the affairs
concerning police education, police communication, criminal identification, criminal statistics, and
police equipments, and shall be liable to coordinate the affairs concerning police administration.(The
Police Law of Japan, 1972)

The National Public Safety Commission appoints the commissioner general of the National Police
Agency and senior officials of prefectural police organization.

The NSPC is composed of Chairman

and five members. The Chairman, who shall be a Minister of the State, presides over and represents the

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affairs of the commission. The members are appointed by the Prime Minister with the consent of the
two houses of the Parliament (Diet). The members shall have no career as professional public servants,
or as a police officers or prosecutors within five years of appointment. The reason according to the
National Police Agency is to ensure political neutrality, no more than two members belong to the same
political party.(National Police Agency Journal, Japan, 1998)

National Police Agency

The National Police Agency is under the supervision of the National Public Safety Commission. The
Commissioner General heads the National Police Agency and can be appointed and is dismissed by the
National

Public

Safety

Commission

with

the

approval

of

the

Prime

Minister.

As

Commissioner-General of the National Police Agency, he can control the affairs of the agency, and
appoints and dismisses the personnel under his authority. He also controls and supervises the
performance of the duties of the personnel, which includes the direct supervision of the prefectural
police regarding the duties specified within the National Police Agency. The Director-General of the
National Police Agency assists the Deputy Commissioner General on the supervision of the affairs of
the National Police Agency, including also the affairs of the internal bureaus, and local and attached
organizations. (National Police Agency Journal, Japan, 1998,

Police Law of Japan, 1972)

The Police Law of Japan lists the National Police Agency functions, which include the following:
planning and research on police systems, national police budget, and police operations in time of
large-scale disaster and disturbances, preparation and implementation of the plans concerning
emergency situations, measures against trans-prefectural organized crimes, traffic regulations on
highways, international criminal investigation assistance, operation of the Imperial Guard, police
training, police communications, criminal identification, criminal statistics, police equipment, standards
of equipment, duties and activities of police personnel, coordination of police administration and
inspection (Police Law of Japan,1972,

National Police Agency Journal, 1998)

Based on the Japanese Police Organizational Structure, the National Police Agency is consists of the
following offices: the Commissioner Generals Secretariat, the International Affairs Department, the

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Community Safety Bureau, the Criminal Investigation Bureau, the Organized Crime Control
Department, The Traffic Bureau, the Security Bureau and the Informations Bureau. (See Figure 1
above, the Organizational Structure of the Japanese Police)

Organizations Attached to the National Police Agency

The Organizations Attached to the National Police Agency are the following: the National Police
Academy, The National Research Institute of Police Science and Imperial Guard Headquarters.

The National Police Academy conducts the education and training of the police personnel.

The Scientific Police Research Institute conducts the researches and experiments for scientific criminal
investigation, including identification, prevention of juvenile delinquency, preventing traffic accidents
and other crimes, and judgment and examination through application of such researches and
experiments.

The Imperial Guard Headquarters shall take charge of the escort service for the Imperial families: the
Emperor, the Empress, the Crown Prince and other members of the imperial families; and guard for the
Imperial Palace and Imperial Villas. (National Police Agency Journal, Japan, 1998)

The Regional Police Bureaus

The Regional Police Bureaus are established in the major cities of each geographic region such as
Tohoku Regional Bureau in Sendai City, Kanto Regional Police Bureau in Tokyo To, Chubu Regional
Police Bureau in Nagano City, Kinki Regional Police Bureau in Osaka City, Chugoku Regional Police
Bureau in Hiroshima City, Shikoku Regional Police Bureau in Takamatsu and Kyushu Regional Police
Bureau in Fukuoka City. The Tokyo Metropolitan Police Department and Hokkaido Prefectural Police
Headquarters are not included in the Regional Police Bureaus.

The Regional Police Bureaus are under the administration of the National Police Agency, which is

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headed by a Director-General. Each Regional Police Bureau has the authority to exercise control,
supervision and gives services to prefectural police organization within its jurisdiction through the
orders and authority of the Commissioner General. (The Police Law of Japan, 1972)

The Prefectural Police Organization

There is an established Prefecfural Police Organization in each prefecture, which is responsible for
carrying out its functions and duties within the jurisdiction of the prefecture. The Prefectural Police
Organization is under the supervision of the Prefectural Safety Public Commission and Prefectural
Headquarters.

The Prefectural Safety Public Commission

The elected prefectural governors have jurisdiction with the Prefectural Safety Public Commissions.
The Prefectural Safety Public Commission has administrative supervision on the basic policies and
regulations for police operations. The PSPC has the authority to issue administrative licenses such as
drivers licenses, firearm possessions and business for entertainment. The Police Law of Japan (1972)
states the PSPC has close contact with the National Safety Public Commission at all times.

The governor of the prefecture may appoint and dismiss the members of the commissions with the
consent of the prefectural assembly. In the large prefectures, there are five members, and three members
in the small prefectures. The members elect the chairman from among them. The members may serve
within three years. The members of PSPC, as NSPC, as provided by the law, have no career as
professional public servants, as a police officers or prosecutors within five years of appointment.

Metropolitan Police Department and Prefectural Police Headquarters

The Police Law of Japan (1972) laid down that the Metropolitan Police Department and the Prefectural
Police Headquarters through the supervision of their respective Prefectural Public Safety Commissions
are in charge respectively of the affairs of the Tokyo Prefectural Office and other Prefectural Office.

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The Metropolitan Police Department is the headquarters of the Metropolitan Police Department located
in Tokyo and the headquarters of the other Prefectural Police is the Prefectural Police Headquarters in
every office of every prefecture. The superintendent general heads the Metropolitan Police Department,
the chiefs of each prefecture head the Prefectural Police Headquarters.

The National Public Safety Commission appoint and dismiss the superintendent general, with the
approval of the Prime Minister and with the consent of the Tokyo Metropolitan Public Safety
Commission. The National Public Safety Commission appoint and dismiss the Prefectural Police Chiefs
with the consent of their Prefectural Public Safety Commission.

The Metropolitan Police Headquarters and Prefectural Police Headquarters are divided into different
districts. The station chiefs head each district. The police stations serve as front-liners in the
performance of their operations and maintain close contact with the local community.

There are police boxes (koban) and residential police boxes (chuzaisho), which are under the
jurisdiction of the police stations, located in a sub-district of the station.

Each Prefectural Police Headquarters is independent from each other. Though independent, the
Prefectural Public Safety Commission can request for the assistance of the other prefectural police
informing the National Police Agency to render assistance. As provided by the Police Law of Japan
(1972), the prefectural police can extend its authorities even beyond its area of jurisdiction such as
investigation of crimes, arrest of the suspects and other related matters for the public safety and order
within the area of jurisdiction. (The Police Law of Japan, 1972,

National Police Agency Journal,

Japan, 1998)

2. Philippine Police Organization

The Philippine National Police

The Philippine National Police as provided by Republic Act No. 8551, and the 1987 Philippine

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Constitution is national in scope and civilian in character, which is administered and controlled by the
National Police Commission. The PNP is a community and service-oriented agency, which is
responsible for the maintenance of peace and order and public safety.

The Philippine National Police support the Armed Forces of the Philippines during suppression and
insurgency, national emergency and in combat operations upon the call of the President.

The Philippine National Police is composed of the Director-General, 2 Deputy-Director Generals: for
Administration and Operations, 10 Directorial Staffs, 9 Administrative Units and 11 Operational Units.
The Deputy-Director General for Administration rank second, and Deputy-Director for Operations rank
third.

The Director-General directs, commands and controls the Philippine National Police, appointed by the
President from the senior officers down to the rank of Chief Superintendent, with the confirmation of
the Commission of Appointments. The term of office of the Director-General should not exceed 4 years,
except during times of war or national emergency and then through the declaration of Congress. The
President may extend his term. The Deputy-Director General for Administration and Deputy-Director
for Operations upon the recommendation by the Chief of the PNP are appointed by the President, and
serves 4 years with the endorsement of the Chairman of the Civil Service Commission, subject to
confirmation by the Commission on Appointments from among the senior and qualified officers in the
service.

In the performance of his functions and duties as Director-General, he may delegate such powers to his
subordinate officers with respect to the units under their respective commands in accordance with the
rules and regulations prescribed by the National Police Commission. (Republic Act No. 6975, amended
by Republic Act No. 8551)

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National Police Commission

The 1987 Philippine Constitution prescribed and the Republic Act 8551 provided that a National Police
Commission is established, as an agency attached to the Department of Interior and Local Government
(DILG) for policy and program coordination.

It consists of a Chairperson, the Secretary of the Department of Interior and Local Government (DILG),
who is ex-officio. The Vice Chairperson acts as the executive officer of the Commission. There are 4
regular Commissioners and the Chief of the Philippine National Police as ex-officio-member. There are
3 regular commissioners who come from the civilian sector. The President designates a
Vice-Chairperson who is neither active nor a former member of the police or the military from one of
the 3 regular members. The fourth regular member comes from the law enforcement sector, and can be
either active or retired. The law also provides that at least one of the commissioners is a woman.

Under Republic Act No. 6975 as amended by Republic Act No. 8551, the National Police Commission
exercise the following powers and functions: exercise administrative control and operational
supervision of the Philippine National Police, advise the President in all matters involving police
functions and administration, recommend to the President through the Secretary of DILG a crime
prevention program within 60 days before the commencement of each calendar year and perform other
functions necessary provided by the Act and as the President may direct.

The Staff Services as provided by Republic Act 8551 are as follows: the Planning and Research Service,
the Legal Affairs Service, the Crime and Prevention and Coordination Service, the Personnel and
Administrative Service, the Inspection, Monitoring and Investigation Service, the Installations and
Logistics Service and the Financial Service.

The National Police Commission established the Disciplinary Appellate Board, which is the formal
administrative disciplinary body, composed of the National Appellate Board and the Regional Appellate
Board.

The National Appellate Board is responsible to decide on the cases appealed by the PNP Chief.

The Regional Appellate Board decide on cases appealed by officers aside from the PNP chief, the

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mayor and the Peoples Law Enforcement Board. (PLEB). (Republic Act No. 8551, Tradio, 1994,
Primer on the PNP Reform and Reorganization of 1998)

Philippine Public Safety College and the Philippine National Police Academy

The Philippine Public Safety College is responsible for training, education, human resource
development for the future officers and the continuing education and training of all the personnel of the
Philippine National Police, Bureau of Fire and Protection and Bureau of Jail Management and Penology.
The Philippine Public Safety College is composed of the Philippine National Police Academy (PNPA),
the Fire Service Training Center (PNTC), the National Police College and other special training centers
established by the Department of Interior and Local Government (DILG) in accordance with Section 13
of Presidential Decree No. 1184. (Tradio, 1994,

Republic Act No. 6975)

The Secretary of the Department of the Interior and Local Government, the Chief of the Philippine
National Police, Fire and Jail Bureaus, has direct supervision over Philippine Public Safety College.
The Secretary of DILG is the chairman; the Chief of the PNP, Fire and Jail Bureau are members. (Rule
10 Sections 68,69,and 70, Republic Act No. 6975)

Internal Affairs Services

The Internal Affairs Service of the Philippine National Police as provided by Republic Act No 8551,
conducts the following functions and powers: inspect and audit of the PNP personnel and units,
investigate complaints and gather evidence in support of an open investigation, conduct summary
hearings on the PNP members facing administrative charges, submit a periodic report on the assessment,
analysis and evaluation of the character and behavior of the PNP personnel and units to the Chief of the
PNP and the National Police Commission, file appropriate criminal cases against PNP members before
the court as evidence warrants and assist in the prosecution of the case and provide assistance to the
Office of the Ombudsman in cases involving the personnel of the PNP. It automatically conducts
investigation on the following cases: the discharges of firearms by the police personnel, human rights
violations, the death and physical injuries, of the police during operations, loss of the evidencs while in

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custody of the police and violation of the rules of engagement.

The Inspector General heads the Internal Affairs Service, assisted by a Deputy Director General. He is
appointed by the President upon the recommendation of the Director General of the PNP and endorsed
by the National Police Commission.

The Internal Affairs is consisting of various offices: national, regional and provincial. The Director
heads area offices and a superintendent heads the provincial offices. ( Republic Act No. 8551)

Directorial Staffs

The Directorial Staffs consists of the following offices: Directorate for Personnel and Record
Management, Directorate for Intelligence, Directorate for Operation, Directorate for Operations,
Directorate for Plans, Directorate for Police-Community Relations and Directorate for Investigation.

The offices mentioned above are headed by the Directors with the position title of Director-General
Staffs, appointed by the President upon the recommendation of the Chief of the PNP, endorsed by the
Civil Service Commission and confirmed by the Commission on Appointments with 4 years term of
office. (Gatdula, 1994, The Organizational Structure of the Philippine National Police: An Analysis,
Appendix B, Republic of the Philippines, Department of the Interior and Local Government, National
Police Commission, Resolution No. 92-36)

Administrative Support Services Units

The Administrative Support Services Units are composed of the Logistic Support Service, Computer
Service, Finance Service, Medical and Dental Service, Communications Service, Chaplain Service,
Legal Service, and Headquarters Support Service.

The Directors head each of the offices and serve for 4 years with the rank of Chief Superintendent. The
Directors are appointed by the President through the recommendation by the PNP Chief, endorsed by

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the Chairman of the Civil Service and with the confirmation by the Commission on Appointments.
(Gatdula, 1994,

NAPOLCOM Resolution No. 92-36)

Operational Support Units

The Operational Units are Maritime Command, Intelligence Command, Security Command, Criminal
Investigation Command, Special Action Force Command, Narcotics Command, Aviation Security
Command, Traffic Management Command, Civil Service Command, Police-Community Relations
Command and Crime Laboratory.

The Operational Units are headed by the Directors with the rank of Chief Superintendent and serve 4
years. The Directors are appointed by the President recommended by the PNP Chief through the
endorsement by the Chairman of the Civil Service Commission and subject to the confirmation of the
Commission on Appointments. (Gatdula, 1994,

Resolution No. 92-36)

National Capital Region Police and Regional Police Offices

The Philippine National Police consists of a National Office, Regional Offices, Provincial Offices,
District Offices and City and Municipal Police Stations.

The Philippine National Police national office is in Metropolitan Manila, which includes the directorial
staff, service staff and special support units.

The Philippine National Police Regional Offices consists of 15 Regional Commands: Regions 1 to 12,
National Capital Region (NCR), Cordillera Administrative Region (CAR) and the Autonomous Region
for Muslim Mindanao (ARMM). Regional Director with the rank of Chief Superintendent heads each
regional command. The NCR consists of 5 District Offices: Western, Central, Northern, Southern and
Eastern Police District.

The Provincial Director assisted by the Deputy Provincial Director, with the rank of Senior

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Superintendent, with a maximum 9 years term, heads the Provincial Police Offices.

The PNP District Offices are organized in large provinces, headed by the District Director with the rank
of Superintendent, which is under the direct control and command of the Provincial Director.

A Chief of Police with the rank of Chief Inspector heads the City and Municipal Stations.

The Regional Directors and the Provincial Directors are appointed by the President through the
recommendation by the President, endorsed by the Chairman of the Civil Service Commission and with
the confirmation of the Commission on Appointments.

The District Directors in the large cities and the Chiefs of Police in any police stations in cities and
municipalities are appointed by the Chief of the Philippine National Police upon the recommendation of
their immediate superiors and attested by the Civil Service Commission. (Republic Act No. 6975,
Primer on PNP reform and Reorganization Act of 1998)

Participation of Local Government Executives in the Administration of the Philippine National

Police

The mayors and governors act as deputized representatives of the National Police Commission in their
respective jurisdictions. They can inspect police units and forces, conduct audit, and exercise other
functions as authorized by the National Police Commission, as deputized representatives. (Republic Act
8551)

Womens Desk

The Womens Desk is established in all police stations all over the country to administer and attend to
the cases involving crimes against sexual harassment, chastity, abuses committed against women and
children and any other related crimes or similar offenses. The Philippine National Police reserve 10
percent as a quota for recruitment, training and education for women. (Republic Act 8551)

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The Peoples Law Enforcement Board

The Peoples Law Enforcement Board is created to act as a central receiving entity for the complaints of
any citizens against officers and members of the Philippine National Police.

The PLEB is composed of 3 members, who are from among respected members in the community, one
of them is a woman and another is a member of the Bar, or in the absence of such qualifications, a
college graduate, or the principal of the central elementary school in the locality. The Chairman must be
elected from among the members. Both the Chairman and the members serve for 3 years. (Republic Act
No. 8551)

f. Rank Classifications

Japan rank classifications are divided into 9 ranks: Superintendent General, Superintendent Supervisor,
Chief Superintendent, Senior Superintendent, Superintendent, Police Inspector, Assistant Police
Inspector, Police Sergeant and Policemen; whereas the Philippine Police rank classifications are divided
into 16 ranks: Director General, Deputy Director General, Director, Chief Superintendent, Senior
Superintendent, Superintendent, Chief Inspector, Senior Inspector, Inspector, Senior Police Officer IV,
Senior Police Officer III, Senior Police Officer II, Senior Police Officer I, Police Officer III, Police
Officer II and Police Officer I. (National Police Agency Journal, Japan, 1998,

Tradio, 1994)

Figure 3

Japan

Philippines
Director General
Deputy Director General
Director
Chief Superintendent
Senior Superintendent
Superintendent
Chief Inspector
Senior Inspector
Inspector
Senior Police Officer IV
Senior Police Officer III
Senior Police Officer II
Senior Police Officer I
Police Officer III
Police Officer II
Police Officer I

Superintendent
General
Superintendent
Supervisor
Chief Superintendent
Senior Superintendent
Superintendent
Police Inspector
Assistant Police
Inspector
Police Sergeant
Policeman

Source: National Police Agency Journal, 1998,

Tradio, 1994.

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III. Summary and Conclusions

Organizations, whether public or private in nature have a common end and that is to attain their goals
based on their overall purpose, vision and mission. However, in public organizations such as the
government, the paramount consideration is the client (that is the people) whereas for the private
organizations (the business sector), its primary goal is the profit.

Organizations operations will not materialize without subsystems such as departments and divisions.
Without plans, programs, policies, rules and regulations, there can be no clear procedures that serve as a
guide for every member of the organization to do what are they supposed to do and not to do. Prof.
Tendero (1993), emphasized that how the organizations can be viewed depends on the perception and
administrative orientation of what is expected to be achieved, the mechanisms required to achieve it,
the cost it will entail the time framework needed accomplish results. Thus, it would depend on what
are the practice, culture, and environment both in the administration and the members within the
organization. There are organizations where the administrations are so strict and firm that they are too
systematic and traditional, whereas there are others, which are too lenient and open. There are
organizations, which are centralized while the others are decentralized system. An organization is
centralized when the administration concentration above all is on leadership, responsibilities,
accountabilities and decision-making of the central administration whereas, an organization is
decentralized when the central administration transfers its authority and power to the lowest level of the
organization.

Japan and the Philippines as countries have their own features and characteristics. Both Japan and the
Philippines are in the Asian Continent. Both are archipelagos, which consists of the islands and the
waters around them. Japan is administratively divided into prefectures with a total population as of
November 2002 of 127.620 millions, whereas the Philippines are divided into provinces, as of July
2001 has a close population to 83 millions. Basically, Japan is culturally homogenous whereas the
Philippines is a mixture of cultures.

The United States has greatly influenced the political system of Japan and the Philippines. The

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Constitution of both countries has been patterned from the democratic Constitution of the United States.
However, Japan is parliamentary in structure while Philippines is presidential. Japan as a parliamentary
system represented by the Emperor as Ceremonial Head of the State with no governmental powers; the
Prime Minister as the head of the government has full authority and power in governmental affairs is
elected by the Members of the Parliament and is removed from office through a vote of no confidence
of the Parliament. The President represented by the Philippines, on the contrary, both in ceremonial and
government functions is elected directly by the people with fixed terms of office and is removed from
office through impeachment.

The police as one of the agencies of the government have major functions in society. The moral duty of
the police is to give protection to the life of every citizen and maintain public peace and order in society.
The police should attend to the different types of criminal behavior as has been discussed by Tradio
(1994), such as major crimes; offenses against public moral and offenses that have something to do
with the maintenance of peace and order. The police should prevent criminality, arrest the offenders,
recovers the stolen property, and regulates the non-criminal conduct and performance of related
service.

There are two fundamental theories of police service that are specifically cited by Tradio (1994, Ibid),
the Continental Theory and the Home Rule Theory. The former, which is centralized in pattern and the
latter, is decentralized in pattern. According to Tradio (1994, Ibid), the police in the Continental
Theory are servants of the higher authorities and the people do not contribute in their duties nor does
the police have direct connection with the people. In contrast, the police in Home Rule Theory are
servants of the people in the community and the people have direct connection with the police as they
express their wishes to them. As civil employees therefore, they preserve the public peace, security and
order.

Japan followed the French police system during the Meiji era, characterized by a highly centralized and
integrated system, which until now has been adopted and continuously functions. The National
Government of Japan under the Police Law established a central police organization to control and
supervise the prefectural police on matters of public concern. In Japan, the police through the National

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Public Safety Commission are responsible for the administrative supervision over the National Police
Agency. Although National Public Safety Commission is under the jurisdiction of the Prime Minister,
the organization maintains its independence.

Moreover, the Commissioner General who controls the affairs of the agency appoints and dismisses the
personnel under his authority and heads the National Police Agency. The Deputy Commissioner
General on the supervision of the affairs of the National Police Agency, including the affairs of the
internal bureaus, local and attached organizations, assists him.

The National Police Agency based on its organizational structure is composed of the Commissioners
Secretariat, the International Affairs Department, the Community Safety Bureau, The Criminal
Investigation Bureau, the Organized Crime Control Department, the Traffic Bureau and the
Informations Bureau.

The organizations attached to the National Police Agency consist of the National Police Academy, The
National Research Institute of Police Science and the Imperial Guard Headquarters.

The National Police Agency administers the Regional Bureaus headed by the Director General. There is
also an established Prefectural Police Organizations, which is under the supervision of the Prefectural
Public Safety Commission and the Prefectural Headquarters. The Prefectural Public Safety Commission
is under the jurisdiction of the elected prefectural governors.

The respective Prefectural Public Safety Commissions of the Metropolitan Police Department and
Prefectural Police Headquarters has supervision over them. The Metropolitan Police Department is
located in Tokyo and the Prefectural Headquarters in the headquarters of the prefecture. The
Superintendent General heads the Metropolitan Police Department and the Chiefs of every prefecture
heads the Prefectural Police Headquarters.

The Metropolitan police Headquarters and the Prefectural Headquarters are divided into different
districts. The Station Chiefs head each district.

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The police boxes (koban) and the residential police boxes (chuzaisho) are under the jurisdiction of the
police stations.

Each Prefectural Police Headquarters is independent from each other. In cases where the assistance is
necessary, the Prefectural Public Safety Commision can request for the assistance of the other
prefectural police and request the National Police agency to render assistance. Under the Police Law,
the prefectural police can extend its authority even beyond its area of jurisdiction in cases of
investigation of crimes, arrest of the suspects and other related matters which concerns public safety
and order within the area of jurisdiction.

During the Spanish Occupation in the Philippines, the police was military in character and had a
centralized system. The Spanish Colonial Government controlled over it. The police at that time have
dual functions: soldier and a policeman. At present, the Philippine police is national in scope and
civilian in character provided by the 1987 Philippine Constitution and Republic Act No.7965 as
amended by Republic Act No. 8551.

The Philippine National Police and Armed Forces of the Philippines support each other especially
during suppression, insurgency, and national emergency and in combat operations upon the call of the
President.

The Philippine National Police is composed of the Office of the Director General, Offices of the Deputy
Director Generals for Administration and Operations, Offices of the Directorial Staffs, Office of the
Administrative Staffs and Office of the Operational Units.

The Director General directs, controls and commands the Philippine National Police. In the
performance of his duties, he can delegate his powers to his subordinates in accordance with the rules
and regulations prescribed by the National Police Commission.

The National Police Commission is attached to the Department of Interior and Local Government for

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policy and program coordination.

The Philippine Public Safety College is a primary educational and training institution for the future
officers of the Philippine National Police, Bureau of Fire and Protection and Bureau of Jail and
Management. It is composed of the Philippine National Police Academy, the Fire Service Training
center, the National Police College and other special training centers established by the Department of
Interior and Local Government.

The Internal Affairs Services consists of various offices, national, regional and provincial, headed by
the Inspector General and assisted by his deputy. Its main concern is the inspection, audit investigation
of the behavior of the PNP personnel and officers and other related cases.
The Directors heads the Directorial Staffs, Administrative Supports and Operational Supports Units.

The Philippine National Police consists of the national office, regional offices, provincial offices,
district offices and city and municipality police stations. The Philippine National Police national office
is in Metropolitan Manila, and includes the directorial staff, a service staff and support unit.

The PNP

regional Offices consist of 15 Regional Commands: regions 1 to 12. National Capital Region,
Cordillera Administrative Region and the Autonomous Region of Muslim Mindanao. The Regional
Director heads each regional command. The Provincial Director heads the provincial offices. The
District Director heads the PNP district offices. The Chief of Police heads the city and municipal
stations.

The mayors and governors can inspect police units and forces, as they are deputized representatives of
the National Police Commissions as provided by republic Act No. 8551.

The Womens Desk is also established to administer and attend to cases involving crimes against abuses,
chastity, sexual harassment against woman and children. The Peoples Law enforcement Board is also
created to act as a receiving entity for complaints of any citizens against the officers and personnel of
the Philippine National Police.

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The rank classifications in the police organization of Japan are divided to 9 ranks from Superintendent
General to the Policeman, whereas in the Philippine Police Organizations are divided into 16 ranks,
from the rank of Director General to Police Officer I. (See Figure 3)

In conclusion, Japan and the Philippines police organizations in administrative point of view are
different in the sense that a Japans police organization is a centralized system whereas the Philippine
police organization is decentralized. As the police organization is under the supervision and is one of
the agencies, of the government, it is precisely a public organization, the main purpose of which is to
serve the community. As organizations, both Japans and the Philippines police organizations have
respective concrete programs, policies, procedures, rules and regulations for the achievement of their
respective goals. Furthermore, as organizations, they are composed of subsystems such as departments,
bureaus and divisions that serve as tools for the successful operations and functions of the organizations.
The policies, rules, regulations and procedures would provide a definition for the clear-cut functions
and duties of each offices and officers concerned.

V. References
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Brillantes, Alex, (1997), Local Governments in a Democratic Polity: Trends and Prospects, University of the
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De Leon, Hector S. (1999), Textbook on the Philippine Constitution, Rex Bookstore, Rex Publishing Company Inc.,
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Gatdula, Magtanggol B. (1994), The Organizational Structure of the Philippine National Police: An Analysis,
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Janda, Kenneth (1980), Political Parties: A Cross-National Survey, New York: The Free Press and Mc Millan, USA.
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Moriyama, Tadashi (1993), World Factbook of Criminal Justice Systems, Takushoku University, Japan.
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