PERFORMANCE GOVERNANCE SYSTEM
The Performance Governance System (PGS) is a holistic and collaborative framework for designing, executing, monitoring, and sustaining roadmaps to reform. Beyond operational effectiveness and to complement process improvements, the PGS puts premium on the strategic impact that an organization can make, given its mandate. At the national level this means world-class public service, and at the local level, a robust economy
FOUR STAGES OF THE PGS
Governance mechanisms that pertain to strategy design, strategy execution, and strategy sustainability are plotted throughout the four-stage pathway. Those that are mainly on the design of the strategy fall under the Initiation Stage, whereas strategy execution and sustainability mechanisms are set up in Compliance and strengthened once Proficiency begins. Breakthrough results meanwhile begin to emerge by the second or third stage and demonstrate its transformational impact by the last stage, also known as Institutionalization.
PGS ELEMENTS
Breakthrough Results
Mission-related, influenceable by the organization, and truly transformative.
Basic Governance Documents
Presence of a well-formulated strategy (including the Charter Statement, Strategy Map, and Governance Scorecard) that shows how the organization will move towards its Vision
Technical Working Group (TWG)
A group of champions in the operating units who will rally for performance results
Cascading Framework
Making the strategy everybody’s job through aligning all units and individuals to the strategy
Office for Strategy Management (OSM)
A unit created purposively to oversee strategy execution
Unit Governance Practices
Creating a discipline of accountability with regular and effective monitoring and evaluation within the organization
Multi-Sector Governance Council (MSGC)
Formalizing the participation of key stakeholders to the organization’s strategy
Governance Culture
Harmonizing systems and processes to sustain strategy execution and cultivate the values of integrity, fairness, and accountability
Governance Sharing
Sharing the good governance advocacy internally and externally
I. OVERVIEW OF THE NAPOLCOM PGS JOURNEY
It is essential that the police should shift its mindset from its traditional policing function of law enforcement to a more substantial role of being law enforcer and community leader. The police should go beyond the scope of their traditional duties and become increasingly conscious of the role they can play in the solution of the major problems of society, with particular reference to those raised by the potential threat brought about by the escalation of crime. The police should not merely be instruments of crime control or suppression.
Under Sec. 2 of Republic Act No. 6975, the PNP is mandated to: 1) promote peace and order; 2) ensure public safety; and 3) further strengthen local government capability aimed towards the effective delivery of the basic services to the citizenry. Likewise, Republic Act No. 8551 further prescribes that “the PNP shall be a community and service-oriented agency responsible for the maintenance of peace and order and public safety.” It is significant to note that the third task of the PNP was meant to support a major mandate of the DILG, which is to take care of the local government units in our country. Indeed, the law placed the PNP within the organizational domain of the DILG to make the PNP closer to the people by obligating it to strengthen local government capabilities in the effective delivery of basic services to the citizenry.
While the first two mandates of the PNP were its main focus since its creation in 1990, it is high time that the third mandate be strengthened through “a system of coordination and cooperation among the citizenry, local executives and the integrated law enforcement and public safety agencies created under the Act.” Evidently, the accomplishment of the third mandate hinges on the collective community spirit in the localities generated by the combined efforts of the stakeholders – the DILG, NAPOLCOM, PNP, the citizenry, local executives, and the other law enforcement agencies present in the locality through program complementation and sharing of their respective funds, personnel and logistics.
The National Police Commission, as an overseer of the PNP, is pursuing a strategic change initiative towards a community and service-oriented policing system. One major emphasis is cultivating people-police partnership aimed at bolstering a system of coordination and cooperation among the citizenry, local executives and the integrated law enforcement and public safety agencies for the delivery of services in the community. In the long term, it will facilitate the transition from the traditional reactive incident-driven model of policing to a proactive style of policing which seeks to identify and dynamically resolve community and development problems.
Background Information about NAPOLCOM
Key Facts and Statistics about NAPOLCOM
Section 6, Article XVI of the 1987 Philippine Constitution provides that the State shall establish and maintain one police force that which shall be national in scope and civilian in character, to be administered and controlled by a national police commission. This constitutional provision was implemented through the enactment of Republic Act No. 6975, which took effect on January 2, 1991, establishing the Philippine National Police (PNP) composed of the members of the Integrated National Police (INP) and the enlisted personnel of the Philippine Constabulary (PC). The PNP Reform and Reorganization Act of 1998 (R.A. No. 8551), further strengthened the NAPOLCOM in its exercise of administration and control functions over the PNP.
The NAPOLCOM is an attached agency to the Department of Interior and Local Government (DILG) for purposes of program and policy coordination. It is a collegial body composed of a chairman and four (4) regular commissioners, one of whom is designated by the President of the Philippines as Vice-Chairman and Executive Officer. The DILG Secretary is the Ex-Officio Chairman while the Chief, PNP is an Ex-Officio Commissioner.
As of September 2014, NAPOLCOM has a personnel complement of 843. Of this total, 348 personnel are assigned at the Central Office while 495 are assigned to the 17 regional offices of NAPOLCOM. For Fiscal Year 2014, the budgetary allocation of NAPOLCOM under the General Appropriations Act is Php 1.43 billion which is 2.13% higher than that of 2013.
Growth Opportunities Available to the Partner
The increasing number of national government agencies and local governments undergoing Performance Governance System (PGS) shall result in greater opportunities for good governance. The implementation of PGS in NAPOLCOM is seen as both a way to add value to the services provided by the PNP to the community and to increase the institutional capacity of NAPOLCOM in the exercise of its oversight functions over the PNP.
Development Constraints and Major Challenges
In the strategy development process, the Commission gave emphasis on several organizational dysfunctions that could present obstacles to the pursuit of the NAPOLCOM reform agenda. These include challenges on the following:
• Human resource capacity (i.e., ageing and decreasing number of personnel, lack of training and inadequate skills);
• Limited financial resources, insufficient logistics (i.e., inadequate ICT infrastructure and shortage of regional office buildings);
• Organizational capacity hampered by inadequate or outdated systems and procedures governing NAPOLCOM’s key processes (i.e., inspection and monitoring systems, police administrative disciplinary system, etc.); and
• Organizational culture that is characterized by resistance to change.
On the external front, NAPOLCOM has to deal with opposition of some PNP members against the shift from reactive policing to community and service-oriented policing. As for local chief executives, our challenge is to ensure that they fully appreciate and understand their role as deputies of the Commission in police administration.
II. THE NAPOLCOM CHANGE AGENDA
Strategic Change Agenda
Since the establishment of the PNP in 1991, the PNP has performed its mandate as a traditional law enforcement agency. As such, it puts emphasis on crime control and suppression whereas the role of the police in community development has not been given as much attention. As a result, the duty of the PNP to further strengthen the local capability to effectively deliver basic service, as mandated by law, has not been actively pursued.
As the overseer of the PNP, NAPOLCOM seeks to strengthen consciousness among police officers of their key role in enabling communities to achieve socio-economic development. Such initiatives shall likewise systematize NAPOLCOM’s deputation of LCEs by clearly defining their role as they relate to a community and service-oriented PNP. The Commission would like to see communities wherein the police and the local government units work hand in hand to address local development concerns through a system of program complementation and resource sharing.
III. NAPOLCOM’S GOVERNANCE PATHWAY
The Commission was formally introduced to PGS through the PNP. In 2010, then DILG Secretary Jesse M. Robredo designated NAPOLCOM Commissioner Constancia P. De Guzman as supervising commissioner of the PNP ITP-PGS. Thereafter, she was invited by the PNP to be one of the members of the National Advisory Group for Police Transformation and Development (NAGPTD). Since then, other NAPOLCOM commissioners and senior officials became advisory council members or panelists during cascading and revalida sessions, in which NAPOLCOM learned the value of PGS as a powerful and effective tool for organizational reform.
Expectations and Aspirations
The opportunity for the NAPOLCOM to initiate its own PGS came about under the auspices of the European Union’s Justice Support Programme II (EPJUST II) in 2013. Under this program, the DILG invited the NAPOLCOM to submit proposals that are in line with the three major thrusts of the EPJUST II Programme. The Commission, for its part, proposed the implementation of the PGS as part of efforts to strengthen NAPOLCOM’s institutional capacity. Since then, PGS has been the Commission’s tool in aligning its strategic focus towards bringing about a fundamental shift in the country’s policing approach from a traditional, reactive policing to a community and service-oriented policing that underscores the key role of the police in facilitating the effective delivery of basic services.
THE JOURNEY TO INITIATION
Commitment of Leadership
Buy-in among top officials of NAPOLCOM was largely facilitated by their involvement in PGS activities of the PNP. Thus, by the time that NAPOLCOM proposed PGS implementation for funding under the EPJUST II Programme, top officials of the NAPOLCOM are firmly behind PGS as the Commission’s tool for instituting long term reforms.
Formation of Core Team and Technical Working Group
On April 21, 2014, NAPOLCOM issued Special Order (SO) No. 2014-091to initiate the implementation of the PGS. Under this order, strategic initiatives articulated in the execution plan were carried out by project execution teams. The SO likewise created an interim Office of Strategy Management (OSM) that oversaw the early stages of PGS implementation in the Commission. However, with the formal enrolment of NAPOLCOM in the PGS and its decision to vie for the Initiation Stage, the need to amend SO No. 2014-091 became inevitable to ensure that NAPOLCOM has a Technical Working Group (TWG) and a fully operational OSM and to provide for the functions and composition of the TWG and OSM. Hence, the Commission issued Special Order No. 2014-056 on October 10, 2014.
The following is the summary of activities that NAPOLCOM has undertaken to satisfy the requirements of the Initiation Stage:
IV. NAPOLCOM CHARTER STATEMENT
The NAPOLCOM Roadmap is a product of a dynamic and participative process involving a series of brainstorming sessions and discussions. The initial roadmap developed during the Working Session on April 3 and 4, 2014 went through several focus group discussions. Such process culminated on October 10 to 13, 2014 when NAPOLCOM officials and staff convened to once again take a close look at the roadmap, taking into account the feedback from both internal and external stakeholders. The crucial role of the LCEs, as NAPOLCOM deputies, was recognized as an essential element in the successful implementation and sustainability of Community and Service-Oriented Policing (CSOP) System.
The NAPOLCOM Roadmap summarizes the strategic priorities that the Commission will pursue towards the attainment of its vision. This roadmap highlights the NAPOLCOM’s breakthrough goals as well as the steps to be taken in addressing three strategic perspectives - Core Processes, Learning and Growth, and Finance.
In relation to the Core Process perspective, the NAPOLCOM shall work towards the institutionalization of CSOP in both PNP and local chief executives. Moreover, the Commission shall improve police discipline by simplifying rules of procedure for resolving police administrative disciplinary cases and by pursuing critical legislation that would insulate the PNP from partisan politics and rationalize the police administrative disciplinary system. The Commission shall also re-engineer its inspection and monitoring systems for effective assessment of COPS implementation.
As to the learning and growth perspective, NAPOLCOM shall undertake measures to address organizational dysfunctions in relation to its operational units, workforce, financial and logistical resources. First, it shall augment personnel complement and competencies of strategic units. Second, the Commission shall develop a system to recognize operational units for their strategic contributions. Third, it shall also automate monitoring of police administrative disciplinary cases through the use of Police Disciplinary Machinery Information System (PDMIS) to ensure real-time and accurate reporting of case statistics.
In the finance perspective, funding priority shall be given to NAPOLCOM’s execution of strategic initiatives. This shall be complemented by the institutionalization of LGU fund sharing schemes under its Annual Investment Plan (AIP) with the PNP’s Localized Anti-Criminality Action Plans (LACAP) in order to facilitate and sustain the implementation of CSOP.
