LEA 1

LAW ENFORCEMENT ORGANIZATION & ADMINISTRATION

A. Foundations of Organization and Management

What is an organization?

An organization is a system of coordinating activities of a group of people working in a

concentrated manner towards a common goal under authority and leadership.

A system of coordinated activities means that all organizations are composed of parts and
relationships. The parts of organization are the activities or functions being performed
and they are organized when they assume certain logical relationships.

In all organizations, a group of people are needed to implement or execute the activities
or functions.

Cooperation towards a common goal is important in an organization. Cooperation is

strictly a human phenomenon. For rational behavior, cooperation among individuals
always has a purpose. Objectives of the organization spell out the purpose. Its general
purpose is to obtain organizational efficiency.

Organizations are normally structured on a superior-subordinate relationship. Therefore,

authority is a universal element of all organizations. Leadership is a personal quality
which exhorts willing collaboration towards a common goal.

Four (4) Primal Conditions of Organization

Organizations as mentioned above provide unity of action to realize a common purpose.

However, before any unity of action is possible, 4 primal conditions must exist.

1. Authority – This is the supreme source of government for any particular organization.
It is the right exercise, to decide and to command by virtue of rank and position.
2. Mutual Cooperation/Coordination/Consultation – An organization exists because it
serves a purpose. This purpose is viewed by society as beneficial to it. This becomes
the social legitimacy for the organization to perform its functions in the society. It
constitutes recognition by an agreement with the public on the rationality of its
existence.
3. Doctrine – This defines the organizations objectives. It also provides the very source
of various actions which are performed to assure organizational coordination. Hence,
policies, procedures, rules and regulations of the organizational are based on the
statement of doctrines.
4. Discipline – In any organization, discipline is necessary to promote coordination.
Understood as comprising behavioral regulations, it is imposed either by command or
self-restraint to insure supportive behavior from people composing the organization.

Principles of Organization. The primal foundation stated above are broad enough to apply to
any organization regardless of structural design and form. However, certain principles of
organization find particular application in the rational structuring of organizations.

1. Principle of Unity of Objective. An organization structure is effective if it enables

individuals to contribute to the organizations/unit objectives.
2. Principle of 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 Principle. It 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:
a. Unity of Command. It defines a hierarchical system in which a subordinate is
accountable to one and only one immediate supervisor. This is indispensable to
achieve effective coordination. Any violation to this principle, undermines
authority, jeopardizes discipline, disturbs order and threatens stability in the
organization.
b. Span of Control. This relates to the number of subordinates a superior can
effectively supervise. There is no exact mathematical ratio in superior-
subordinate relationship. A satisfactory span of control is instead determined by
the four (4) factors combined:
1. Managerial ability of superior;
2. Effectiveness of organizational communication system;
3. Effectiveness of management control exercised over operations; and
4. Organizational Philosophy on centralization versus decentralization of
authority and function.
c. Delegation of Authority. Scalar process refers to the growth of the chain of
command resulting in the creation of additional levels in the organizational
structure. Span of control necessitates delegation of authority.

4. Functional Principle. 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 units to achieve
specialization. As the 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 division of work will
support 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:

1) the line structure – this refers to the direct accomplishment of objectives.

2) the staff structure – refers to organizations operating in an advisory or facilitative
capacity.

Another viewpoint contends that 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. Prescribes the directorial authority of the Directorate in
the national and regional levels and other equivalents 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 the organization’s objectives.
8. Principle of Delegation. Authority delegated to individual managers should be
adequate to ensure their ability to accomplish the expected result.
9. Principle of Absoluteness of Responsibility. The responsibility of subordinates to
their superiors for performance is absolute and superiors are accountable for their
subordinate’s activities.
 10. Principle of Parity of Authority and Responsibility. The responsibility for actions
cannot be greater than that implied by the authority delegated, nor should it be less.
11. Authority-Level Principle. Maintenance of intended delegation requires that
decisions within the authority if 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 the organization’s structure can fulfill
its purpose. Device and techniques for anticipating and reacting to change must be
built into every structure. Every unit move towards its goal in a changing
environment, both external and internal. The unit that develops inflexibilities,
whether these are resistance to change, too complicated procedures or too firm
department lines, is risking inability to meet the challenges of behavior, technical,
biological, political and social change.
13. Principle of Leadership Facilitation. The more an organization’s 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 in command.

If the authority allocation and the structural arrangements create a situation in which
heads of departments tend to be looked upon as leaders and in which their task of
leadership is aided, organization structuring has accomplished as essential task.

What is Management?

Management is defined as the use of people and other resources to accomplish

objectives. This definition is applicable to all organizational structure, both profit-
oriented and non-profit. The process of management is as important to the effective
functioning of any organization.

Management involves the creation of an environment in which people can most

effectively use other resources to reach stated goals. It involves the implementation of 4
basic functions which play a role in the operations of all organizations.

Four (4) Basic Functions of Management

1. Planning – is the process by which managers set objectives, assess the future
and develop courses of action to accomplish these objectives. All managers
are involved in planning activities.
2. Organizing – is the process of obtaining and organizing people (staffing) and
physical resources to carry out plans and accomplish organizational objectives.
It is a continuing process in any organization.
3. Leading – is a critical activity in any organization. It is the act of motivating or
causing people to perform certain tasks intended to achieve specific
objectives. It is the art of making things happen.
4. Controlling – is the continual analysis and measurement of actual operations
against the established standards developed during the planning process.

What is leadership?

Leadership is part of command functions, but not all of it. A commander is required to
discharge his functions, like planning and deciding, but no less important, he must also
get others to follow. The fact that he can influence others to follow him is no guarantee
that he is going in the right direction. This implies that a strong leader can be a weak
commander for the reason that he is lacking strength in some other managerial abilities
like planning and organizing. He may be able to motivate his command to keep on moving
 but only tangential to organizational objectives. The reverse is also possible. It is
therefore imperative that a commander should have an excellent managerial capability
and reasonably high leadership ability.

Leadership is something an individual does, not something he has. Leadership, however,

should not be confused with mere activity as maybe implied herein. Dynamic interactions
with people will not necessarily result into leadership. What could be more appropriate
as a leadership action is “to stay in the background keeping pressures off the group, to
keep quiet so that other may talk, to be calm in times of uproar, to hesitate and to delay
decisions”.

The quality of a person’s leadership is appraised in practice by studying his followers.

The number and kind of followers and the strength and stability of their commitment to
organizational goals can define the quality of leadership in a person.

Leadership is situational. Different problems, different groups and attitudes within the
same organization demand different leadership qualities and styles.

PLANNING

Defined as the process by which managers set objectives, assess the future, and
develop courses of action designed to accomplish objectives. It also includes
determining appropriate objectives and the optimum timetable for achieving them. It is
a continuous function that directs the organization through a change oriented
environment in the pursuit of established objectives. It also specifies the action needed
to reach these objectives.

Deciding in advance what is to be done and how it is to be done. Experiences,

good researches and environmental scanning are the basis of good planning. Without
planning, individuals/organizations will not grow and succeed.

A document method by which a thing should be done. Plans should be written

down. Otherwise, there will be no way of establishing what is to be done, who will do it,
when to start doing the task involved, what are you doing or who is doing what. This is
what a plan establishes.

A listing of a course of action by a tasked group or groups; or individuals in order

to reach a certain goal. The plan may be implemented by an individual or groups
following a predetermined course of action.

ELEMENTS OF PLANNING
1. A goal – what do you want to attain?
2. Course of action – how would you reach your goal?
3. Implementing group – who is tasked to do the actions?
4. Resources needed – what is needed to accomplish?

IMPORTANCE OF PLANNING

Careful planning should result in the development of a blue print describing the means to
accomplish objectives. Enumerated are the reasons why planning is considered to be a
vital function of every manager.
 1. People become more PRO-ACTIVE not just REACTIVE
It is best to solve problems before it happens. A plan which is put in place,
rehearsed and evaluated would make implementation easier. It would make the
police units dynamic and responsive.
2. Doing more with less
PNP resources are always not enough. Hence, they must be used to the fullest
and with maximum impact. In this case one plus one equals 3 (1+1=3) or the sum
of the parts should be greater than the whole.
3. Foundation of your work
A plan establishes the basis for what you are doing. You will have a quiet guide or
a roadmap to help you do the right things. Take for example the station patrol
plan. It coordinates movements and extends police visibility in crime prone areas
and periods.
4. Helps make your people become more productive
When people know what you want to do, how you want it done and what is
expected of them they adopt their roles and become productive. They will have
a mastery of their job. People know their roles and understand their value and
contribution in the over-all operations.
5. Reflects your competence
Your experience and training will be reflected on the plan you make. It will
establish that you have “your act together”. It will also compel you to “sharpen
your saw” or to read more about delivering quality police service. A good plan is
good image builder.
6. Gives the strategic and tactical advantage
A well formulated and instituted plan allows the commander to make actions and
decisions which have long-term impact. At the same times it prepares the unit for
contingencies needing short-term solutions. Dynamism is an essential
requirement of any unit. It must be flexible and attuned to the people’s will.

SKILLS NEEDED FOR PLANNING

1. Good analytical thinking
You have to know the situation. You have to set-up your baseline data, learn to
analyze what is happening and how it reflects your unit. Where is your crime prone
area? What is your crime clock?
2. Forecast
Seeing ahead and making sound assumptions. Begin with the end in mind. Use your
intuition based on a sound reflection of past experiences. Look at the confluence of
events and look at the future scenario. Use your imagination. Play around with ideas
which would help you to be more effective as a police unit commander. Examine the
casual relationship of events and draw conclusion with a view of the future.

Forecasts are estimates or predictions of future events or outcomes for a specified

time period. It plays critical roles in planning process and their accuracy is reflected
in the accuracy of plans that are developed.

3. Prioritizing
Compare your sources/capabilities with your goals and objective; what and who
should be tasked to reach certain purpose or ends. Ask what should be done first?
What is more important? What has a strategic impact?
4. Sound objective setting
Know where you are going and how to get there. Be practical. A journey of a thousand
miles begins with a first step.
 5. Contingency Planning and Crisis Management
A contingency plan represents your efforts to guess what might go wrong or
differently with your plan and how to handle it if it does.
6. Monitoring
Identify indicators and follow-up. Try to see the progress of your plan. Make a
checklist of what has been done. Place reminders on conspicuous places to remind
you of the progress of the plan.
7. Documenting
If you have not written it, then you have not thought of it. Write your ideas down.
Report the progress of your plan.
8. Flexibility
Adjust your plans to resources. Be realistic. Do not incorporate tasks which need
legislation. Also, be flexible to the point of being able to modify certain parts of the
plan which do not work.
9. Inter-Operability
This refers to the ability of the commander to work in synergy with the different
government and private sectors of the community. These sectors are just waiting to
be tapped and are eager to work with the PNP in pursuit of peace and order. In this
regard strategic and tactical alliance maybe established with the church, the schools,
the local government units and with civic organizations to realize community support
for the PNP.

Steps in Planning Process

1. Define the purpose or the goal

What: Ironically, the first and most crucial step is often the most forgotten. For any plan
to be successful you must have a clear understanding of the desired outcome. So until
the over-all purpose is understood, nothing else should be done. As the model shows,
you return to the purpose or goal between each step of the planning process to ensure
that you are in the right track. Many well intended plans go awry because people lose
sight of the overall goal.
How: A well-defined purpose or goal takes some thought. Here are some of the min.
elements.
a. It states the broad terms what the desired outcome is.
b. It defines the project’s time schedule.
c. It describes the resources that will be used. Resources should be
expressed in terms of people’s time and financial costs, among others.
d. It states any quality standards that are applicable (general accounting
practices, customer satisfaction guidelines, no negative impact on other
processes, etc.)
2. Set objectives
What: Based on your well defined purpose and goal, you will set broad objectives that
describe the major components of your project. Make a list of your objectives for easy
reference.
How: You want to move from your overall purpose or goal statement to the details of
your project. Do this by determining the major “chunks” of the project.
3. Collect and Evaluate Data
What: Once your broad objectives are set, data collection begins. For each major
component of project you need to determine what the relevant facts are and what actions
are necessary to complete each objective. Then develop a realistic and factual list of
specific details or critical success factors for each objective of your plan.

Be sure to involve others through-out the planning process, but especially at this point.
You need feedback from people who will implement the objectives or be affected by
 them. By involving others now, you may prevent any problems down the road, where
they are much harder to fix.
HOW: To collect data needed for each objective, you should ask and answer the following
questions:
1. What work is required to accomplish this objective?
2. Who must perform this work?
3. What issue or challenges will arise while getting this work done?
4. Are those involved committed to this project?
5. How long has similar work taken?
6. What is a realistic amount of time to complete this objective?
7. Are there risks involved?
4. Develop a Forecast
What: forecasting is perhaps the most creative step of the planning process that a police
planner must develop, because several views must be tested before you decide on a
project schedule. At this point of the plan, all of your data should be integrated into a
cohesive road map. Now you will take this detailed information for each objective and
test how it works together in meeting the overall purpose or goal. This step is called
forecasting because it is the first time that you will have information available to predict
the project’s schedule, the resources needed and necessary quality measurements.
How: Forecasting will be less difficult if you compare different possible scenarios to find
the solution or courses of action that best meets the needs of the over-all purpose or
goal. To make schedule for each major component of the project, answer these
questions,
1. Which activities must be done? Eliminate any duplicate tasks that do not add
value to the project.
2. What must be completed before work starts on each specific objectives?
3. What other activities are dependent upon completion of this group of
activities?
5. Determine Action Steps
What: Determine what tactical steps are needed to be taken and in what order based on
your forecast and the details you gathered during data collection. Activities are defined
in a very detailed manner during this part of planning process. You may want to develop
daily or weekly checklists depending on the nature of your project.
6. Develop a Contingency Plan
What: A contingency plan represents your efforts to guess what might go wrong or
indifferently with your plan and how to handle it if it does. Developing a contingency plan
is important because things rarely go exactly as planned. With a contingency plan in
place, you can minimize the negative effects that changes may have on the success of
your project.
How: Coming up with these possible situations requires brainstorming. Be sure to involve
several people in the brainstorming session and answer the following questions:
1. What could happen differently from how we have predicted?
2. What effect, if any, will these differences have?
3. How should we deal with these differences if they occur?
7. Implement the Plan
What: You have done your research, you have consulted with other people, and you have
remained focus on your overall desired outcome or purpose. Now, take your forecast,
action plan, checklists, contingency plan and begin.
How: Plan implementation has three phases as follows:
1. The start – Communicate the plan. Make sure that everyone involved clearly
understands the overall purpose and the roles he will play in the
implementation. Track the initial activities very closely. Get feedback from
those who are involved. Are there any activities that need to be changed or
added? Communicate your initial findings to everyone involved
 2. The Storm – There are several issues to arise during the implementation of
your plan. Some people may be confused about the purpose of the plan and
its time line; perhaps financial pressure and/or unexpected complications may
surface. Try to determine the root cause of the problems by talking to several
people involved. Make several small but needed adjustments. Look at ways
clarifying the plan so that small “irritants” don’t get in the way. Don’t hesitate
to implement your contingency plan if necessary. Communicate, plans often
stall due to lack of communication or conflicting messages.
3. Maintain/Sustain – As the initial focus and attention on the plan die down a
bit, the people involved may become complacent or less motivated. It is
important to keep up that momentum until plan is fully implemented. Space
out any fanfare or special events connected to your plan. If you hold a big
kickoff rally for your plan and then don’t have milestone rallies along the way,
people will sense that the project’s importance has dwindled. Be a role model,
make sure that your motivation doesn’t wane either. Develop creative ways
to keep the plan in everyone’s mind. For example, use periodic memos with
status information and graphics, post charts, leave phone or computer
messages with reminders, updates, ect.
8. Follow-up
What: Follow-up is a continuous activity. As your plan is implemented, you need to
frequently check its progress. The follow up stage is also where you will determine if any
contingency actions are needed. Following on a plan should be automatic and as frequent
a necessary to ensure that your plan is still on course.
How: Check your plan as often as needed. Base your follow-up approach on these
criteria:
1. Complexity if the plan – the more complex, the more frequent follow-ups.
2. Past experience with similar plans – yours and those of others involved
3. The likelihood that contingency will be necessary

Keep in mind that the more specific and measurable your plan, the easier it will be to determine
its progress. Also, remember that the overall purpose or goal should still be the focus of all your
activities.