POLICE OPERATIONAL PLANNING

1. POLICE OPERATIONAL PLANNING In this chapter, the basic concepts in POLICE planning are being discussed to reinforce the topics in the previous chapters. This is so because the word PLANNING became a common terminology in Police Organizations, in Police Management and Administration as well as in the other fields of Criminal Justice.

2. Police administrators sometimes do not appreciate the importance of planning because of the pattern of career development. It is ironic that the pattern of career development for typical police managers carries with it seeds that sometimes blossom into a negative view of planning. However, planning is an integral element of good management and good decision-making. Management needs to anticipate and shape events; it is weak if it merely responds to them.

3. What is a Plan? A plan is an organize schedule or sequence by methodical activities intended to attain a goal and objectives for the accomplishment of mission or assignment. It is a method or way of doing something in order to attain objectives. Plan provides answer to 5W’s and 1 H. What is Planning? Hudzik and Cordner defined planning as “thinking about the future, thinking about what we want the future would be, and thinking about what we need to do now to achieve it.”

4. Planning is a management function concerned with visualizing future situations, making estimates concerning them, identifying issues, needs and potential danger points, analyzing and evaluating the alternative ways and means for reaching desired goals according to a certain schedule, estimating the necessary funds, and resources to do the work, and initiating action in time to prepare what may be needed to cope with the changing conditions and contingent events.

5. What is Police Planning? Police Planningis an attempt by police administrators in trying to allocate anticipated resources to meet anticipated service demands. It is the systematic and orderly determination of facts and events as basis for policy formulation and decision affecting law enforcement management.

6. What is Operational Planning? • Operational Planning is the use of rational design or pattern for all departmental undertaking rather than relying on change in an operational environment. It is the preparation and development of procedures and techniques in accomplishing of each of the primary tasks and functions of an organization.

7. What is Police Operational Planning? • Police Operational Planning is the act of determining policies and guidelines for police activities and operations and providing controls and safeguards for such activities and operations in the department. It may also be the process of formulating coordinated sequence of methodical activities and allocation of resources to the line units of the police organization for the attainment of the mandated objectives or goals. • Objectives are a specific commitment to achieve a measurable result within a specific period of time. Goals are general statement of intention and typically with time horizon, or it is an achievable end state that can be measured and observed. Making choices about goals is one of the most important aspects of planning. Relate this definitions with their description as defined in chapter one.

8. The process of police operational planning involves strategies or tactics, procedures, policies or guidelines. A Strategy is a broad design or method; or a plan to attain a stated goal or objectives. Tactics are specific design, method or course of action to attain a particular objective in consonance with strategy. Procedures are sequences of activities to reach a point or to attain what is desired. A policy is a product of prudence or wisdom in the management of human affairs, or policy is a course of action which could be a program of actions adopted by an individual, group, organization, or government, or the set of principles on which they are based. Guidelines are rules of action for the rank and file to show them how they are expected to obtain the desired effect.

9. STRATEGIC PLANNING Strategic planning is a series of preliminary decisions on a framework, which in turn guides subsequent decisions that generate the nature and direction of an organization. This is usually long range in nature. The reasons for Strategic Planning are:

10. VISION – A vision of what a police department should be. • LONG-RANGE THINKING – Keeping in mind that strategy is deciding where we want to be • STRATEGIC FOCUS • CONGRUENCE • A STRATEGIC RESPONSE TO CHANGE • STRATEGIC FRAMEWORK

11. What is the Strategic Planning process? • TASK 1 – Develop Mission and Objectives • TASK 2 – Diagnose Environmental Threats and Opportunities • TASK 3 – Assess Organizational Strengths and Weaknesses • TASK 4 – Generate Alternative Strategies • TASK 5 – Develop Strategic Plan • TASK 6 - Develop Tactical Plan • TASK 7 – Assess Results of Strategic and Tactical Plan • TASK 8 – Repeat Planning Process

12. In the process, the police administrator can use the potent tool of alternatives. Alternatives (options) are means by which goals and objectives can be attained. They maybe policies, strategies or specific actions aimed at eliminating a problem. Alternative do not have to be substitutes for one another or should perform the same function. For example, our goal is to “improve officer-survival skills.” The plan is to train the officers on militaristic and combat shooting. The alternatives could be: Alternative 1 – modify police vehicles Alternative 2 – issuing bulletproof vests Alternative 3 – utilizing computer assisted dispatch system Alternative 4 – increasing first-line supervision, etc

13. FUNDAMENTALS OF POLICE PLANNING • To increase the chances of success by focusing on results and not so much on the objectives. • To force analytical thinking and evaluation of alternatives for better decisions. • To establish a framework for decision making consistent with the goal of the organization. • To orient people to action instead of reaction. • To modify the day-to-day style of operation to future management. • To provide decision making with flexibility. • To provide basis for measuring original accomplishments or individual performance. • To increase employee and personnel involvement and to improve communication. What are the Objectives of Police Planning?

14. What can be expected in planning? Improve analysis of problems Provide better information for decision-making Help to clarify goals, objectives, priorities Result is more effective allocation of resources Improve inter-and intradepartmental cooperation and coordination Improve the performance of programs Give the police department a clear sense of direction Provide the opportunity for greater public support Increase the commitment of personnel

15. What are the characteristics of a good police plan? With clearly defined Objectives or Goals. Simplicity, Directness and Clarity Flexibility Possibility of Attainment Must provide Standard of Operation Economy in terms of Resources needed for implementation

16. What are the guidelines in Planning? • What to do – mission/objective • Why to do – reason/philosophy • When to do – date/time • Where to do – place • Who will do – people involve • How to do – strategy The five (5) W’s and one (1) H

17. What are the responsibilities in Planning? • Broad External Policy Planning – is the responsibility of the legislative branch of the government. The main concern of the police in this broad external policy planning is assisting the legislature in their determining of police guideline through the passage of appropriate laws or ordinances for the police to enforce. • Internal Policy Planning – is the responsibility of the C/PNP and other chiefs of the different units or headquarters within their area of jurisdiction to achieve the objectives or mission of the police organization. They are responsible for planning, organizing, staffing, directing, coordinating, controlling, reporting and budgeting for the police organization within existing policies and available resources. For maximum police effectiveness, they shall be responsible for the technical operation of the police organization and management of its personnel.

18. What are the approaches in Police Planning? A variety of approaches are employed in the planning processes. Each is unique and can be understood as a method of operationalizing the word planning. There are basically five major approaches to planning which are: • Synoptic Approaches • Incremental Approach • Transactive Approach • Advocacy Approach • Radical Approach

19. What is Synoptic Planning? • Synoptic planning or the rational comprehensive approach is the dominant tradition in planning. It is also the point of departure for most other planning approaches. • This model is based on a problem-oriented approach to planning especially appropriate for police agencies. It relies heavily on the problem identification and analysis of the planning process. It can assist police administrators in formulating goals and priorities in terms that are focused on specific problems and solutions that often confront law enforcement.

20. Steps in Synoptic Planning • Prepare for Planning – The task of planning should be detailed in a work chart that specifies (a) what events and actions are necessary, (b) when they must take place, (c) who is to be involved in each action and for how long,and (d) how the various actions will interlock with one another. • Describe the present situation – Planning must have a mean for evaluation. Without an accurate beginning database there is no reference point on which to formulate success or failure. • Develop projections and consider alternative future states – Projections should be written with an attempt to link the current situation with the future, keeping in mind the desirable outcomes. It is important for the police executive to project the current situations into the future to determine possible, probable and desirable future states while considering the social, legislative, and political trends existing in the community.

21. Identify and analyze problems – the discovery of the problems assumes that a system to monitor and evaluate the current arena is already on place. Closely related to the detection and identification of issues is the ability of the police to define the nature of the problem,that is to able to describe the magnitude, cause, duration, and the expense of the issues at hand. A complete understanding of the problem leads to the development of the means to deal with the issues. • Set goals – Making choices about goals is one of the most important aspects of planning. It makes no sense to establish a goal that does not address a specific problem. Remembering that the police departments are problem oriented, choices about goals and objectives should adhere to the synoptic model. • Identify alternative course of action – As stated earlier, alternatives are means by which goals and objectives can be attained. These are options or possible things to be done in case the main or original plan is not applicable.

22. Select preferred alternatives – there are three techniques to select alternative: • Strategic analysis – this include the study on the courses of actions; suitability studies; feasibility studies; acceptability studies; and judgment. • Suitability – each course of action is evaluated in accordance with general policies, rules and laws. • Feasibility – these include the appraisal of the effects of a number of factors weigh separately and together. • Acceptability – those judged to be suitable and feasible are then realized in acceptability studies. • Cost – effectiveness Analysis – This technique is sometimes called cost-benefit or cost performance analysis. The purpose of this form of selection is that the alternative chosen should maximize the ratio of benefit to cost. • Must-wants Analysis – This method of selecting a preferred course of action combines the strengths of both strategic and cost effectiveness analysis. Must wants analysis is concerned with both the subjective weights of suitability, feasibility, and acceptability and the objectives weights of cost versus benefits.

23. Plan and carryout implementation – The police administrator must be aware that the implementation requires a great deal of tact and skill. It maybe more important how an alternative is introduced to a police department than what actually is. • Monitor and evaluate progress – Evaluation requires comparing what actually happened with what was planned for-and this may not be a simple undertaking. Feedback must be obtained concerning the results of the planning cycle, the efficiency of the implementation process, and the effectiveness of new procedures, projects or programs. This is an important step of synoptic planning, trying to figure out what, if anything happened as a result of implementing a selected alternative. • Summation of the synoptic planning approach – This can be done by making a summary of the presentation, could be tabular or other forms of presentation. • Repeat the Planning Process – repetition of the process of planning enables the planner to thresh out possible flaws in the plan.

24. What is Incremental Planning? Incrementalism concludes that long range and comprehensive planning are not only too difficult, but inherently bad. The problems are seen as too difficult when they are grouped together and easier to solve when they are taken one at a time and broken down into gradual adjustments over time. What is Transactive Planning? Transactive planning is carried out in face-to-face interaction with the people who are to be affected by the plan and not to an anonymous target community of beneficiaries. Techniques include field surveys and interpersonal dialogue marked by a process of mutual learning.

25. What is Advocacy Planning? Beneficial aspects of this approach include a greater sensitivity to the unintended and negative side effects of plans. What is Radical Planning? The first mainstream involves collective actions to achieve concrete results in the immediate future. The second mainstream is critical of large-scale social processes and how they permeate the character of social and economic life at all levels, which, in turn, determine the structure and evolution of social problems.

26. CONSIDERATIONS IN POLICE PLANNING • Primary Doctrines • Fundamental Doctrines – These are the basic principles in planning, organization and management of the PNP in support of the overall pursuits of the PNP Vision, Mission and strategic action plan of the attainment of the national objectives. • Operational Doctrines – These are the principles and rules governing the planning, organization and direction and employment of the PNP forces in the accomplishment of basic security operational mission in the maintenance of peace and order, crime prevention and suppression, internal security and public safety operation. • Functional Doctrines – These provide guidance for specialized activities of the PNP in the broad field of interest such as personnel, intelligence, operations, logistics, planning, etc.

27. Secondary Doctrines • Complimentary Doctrines – Formulated jointly by two or more bureaus in order to effect a certain operation with regard to public safety and peace and order. These essentially involve the participation of the other bureaus of the Bureau of Jail and Management and Penology (BJMP), Bureau of Fire and Protection (BFP), Philippine National Public Safety College (PPSC), National Bureau of Investigation (NBI) and other law enforcement agencies. • Ethical Doctrines – These define the fundamental principles governing the rules of conduct, attitude, behavior and ethical norm of the PNP. • The Principles of Police Organization The principles of organization are presented in chapter three. These principles are considered in police planning in order not to violate them but rather for the effective and efficient development of police plans.

28. The Four (4) Primal Conditions of the Police Organization • Authority – The right to exercise, to decide, and to command by virtue of rank and position. Doctrine – It provides for the organizations objectives. It provides the various actions. Hence, policies, procedures, rules and regulations of the organization are based on the statement of doctrines. • Cooperation or Coordination • Discipline – It is imposed by command or self-restraint to insure supportive behavior.

29. Classifications of Police Plan According to coverage: Police Plans could be Local Plans (within police precincts, sub-stations, and stations), Regional Plans, and National Plans. According to Time: Police Plans are classified as: • Strategic or Long Range Plan – It relates to plan which are strategic or long range in application and it determine the organization’s original goals and strategy. Example: Police Action Plan on the Strategy DREAMS and Program P-O-L-I-C-E 2000, Three Point Agenda, and GLORIA (These are discussed on the latter part of this Chapter).

30. Intermediate or Medium Range Planning – It relates to plans, which determine quantity and quality efforts and accomplishments. It refers to the process of determining the contribution on efforts that can make or provide with allocated resources. Example: 6 Masters Plans: • Master Plan Sandigan-Milenyo (Anti-Crime Master Plan) • Master Plan Sandugo (Support to Internal Security Operations Master Plan) • Master Plan Banat (Anti-Illegal Drugs Master Plan) • Master Plan Sang-ingat (Security Operations Master Plan) • Master Plan Saklolo (Disaster Management Master Plan) • Sangyaman (Protection and Preservtion of Environment, Cultural Properties, and Natural resources Master Plan)

31. Operational or Short Range Planning – Refers to the productions of plans, which determine the schedule of special activity and are applicable from one week or less than year duration. Plan that addresses immediate need which are specific and how it can be accomplished on time with available allocated resources. Examples of OPLANS • Oplan Jumbo – Aviation Security Group Strategic Plan against terrorist attacks • Oplan Salikop – Criminal Investigation and Detection Group (CIDG) Strategic Plan against Organized Crime Groups • LOI PAGPAPALA is the entry point in the conceptualization of the PNP Pastoral Program for the next five years with a Total Human Development Approach (THD Approach). • The TMG through its “OPLAN DISIPLINA” that resulted in the apprehension of 110,975 persons, the confiscation of 470 unlawfully attached gadgets to vehicles, and rendering various forms of motorists’ assistance. • OPLAN BANTAY DALAMPASIGAN that sets forth the operational guidelines on the heightened security measures and sea borne security patrols.

32. Factors affecting Police Planning • Condition – a consideration of political atmosphere, public opinion; ideological aspirations; peace and order; national/community ethics, behavior and discipline in the area where the plan will be implemented. • Time – It is the period available to establish plan before putting it into effort. Consider the time of execution/implementation, the time interval and time allowed for the revisions and modifications of plan. • Resources Available – Allocation of manpower, money and materials • Skills and Attitudes of Management – Refers to the level of experiences of the personnel who are involved in the preparation of the plan and those who will execute the plan. Applicability of good management principles shall be exploited. • Social and Political Environment – Refers to social and political practices, which will be affected b the plan or plan affecting these practices, beliefs and norms of society. • Physical Facilities – Refers to machinery, instrument or tools in the attainment of the goals of the plan. A certain system or structural designs in order to meet expected results. • Collection and Analysis of Data – Ready sources and basis of good decision-making by the makers of the plan may be properly obtain through research and other means of information gathering techniques.

33. Parts of a Police Operational Plan • Security Classification • Number of Copies and Pages • Name of Headquarters • Plan Title or Name • Reference – The source of authority in formulating a plan is based on: • Organizational Policy or Guidelines • Orders of Superior Officers or Authorities • Documents, maps, books, etc. • Situation – General Situation and Specific Situation

34. Mission • Task Allocation • Coordinating Instructions – Refers to the manner of giving alarm or signal when encountering such problems which needs immediate action • Command – Refers to the relationship between operating personnel or units with that of Police Headquarters; who to summon for assistance. • Signal – Defines communication network, which is to be used during a particular operation like using passwords. • Signature • Distribution – Refers to what unit will be given copies of the plan. For instance, A – All units, B – Selected units, C – Very selected, and D – Only 1 unit

35. TYPES OF PLAN in general • Reactive Plans are developed as a result of crisis. A particular problem may occur for which the department has no plan and must quickly develop one, sometimes without careful preparation. • ProactivePlans are developed in anticipation of problems. Although not all police problems are predictable, many are, and it is possible for a police department to prepare a response in advance. • Visionary Plans are essential statements that identify the role of the police in the community and the future condition or state to which the department can aspire. A vision may also include a statement of values to be used to guide the decision making process in the department.

36. Strategic Plans are designed to meet the long-range, overall goals of the organization. Such plans allow the department to adapt anticipated changes or develop a new philosophy or model of policing (e.g. community policing). One of the most important aspects of strategic planning is to focus on external environmental factors that affect the goals and objectives of the department and how they will be achieved. Important environmental factors include personnel needs, population trends, technological innovations, business trends and demand, crime problems, and community attitudes. • Operational Plans are designed to meet the specific tasks requires to implement strategic plans. There are four types of operational plan:

37. Standing Plans provide the basic framework for responding to organizational problems. The organizational vision and values, strategic statement, policies, procedures, and rules and regulations are examples of standing plans. Standing plans also include guidelines for responding to different types of incidents; for example, a civil disturbance, hostage situation, crime in progress, and felony car stops. • Functional Plans include the framework for the operation of the major functional units in the organization, such as patrol and investigations. It also includes the design of the structure, how different functions and units are to relate and coordinate activities, and how resources are to be allocated.

38. Operational-efficiency, effectiveness, and productivity plans are essentially the measures or comparisons to be used to assess police activities and behavior (outputs) and results (outcomes). If one of the goals of the police department is to reduce the crime rate, any change that occurs can be compared to past crime rates in the same community or crime in other communities, a state, or the nation. If the crime rates were reduced while holding or reducing costs, it would reflect an improvement not only in effectiveness but also in departmental productivity. • Time-specific Plans are concerned with specific purpose and conclude when an objective is accomplished or a problem is solved. Specific police programs or projects such as drug crackdown, crime prevention program, and neighborhood clean-up campaign are good examples of time-specific plans.

39. KINDS OF POLICE PLANS • Policy and Procedural Plans – to properly achieve the administrative planning responsibility within in the unit, the Commander shall develop unit plans relating to: (a) policies or procedure; (b) tactics; (c) operations; (d) extra-office activities; and (e) management. Further, standard-operating procedures shall be planned to guide members in routine and field operations and in some special operations in accordance with the following procedures: Field Procedure – Procedures intended to be used in all situations of all kinds shall be outlined as a guide to officers and men in the field. Examples o these procedures are those related to reporting, to dispatching, to raids, arrest, stopping suspicious persons, receiving complaints, touring beats, and investigation of crimes. The use of physical force and clubs, restraining devices, firearms, tear gas and the like shall, in dealing with groups or individuals, shall also be outlined.

40. Headquarters Procedures– Included in these procedures are the duties of the dispatcher, jailer, matron, and other personnel concerned which may be reflected in the duty manual. Procedures that involve coordinated action on activity of several offices, however, shall be established separately as in the case of using telephone for local or long distance calls, the radio teletype, and other similar devices. Special Operation Procedures – Certain special operations also necessitate the preparation of procedures as guides. Included are the operation of the special unit charged with the searching and preservation of physical evidence at the crime scenes and accidents, the control o licenses, dissemination of information about wanted persons, inspection of the PNP headquarters, and the like.

41. Tactical Plans – These are the procedures for coping with specific situations at known locations. Included in this category are plans for dealing with an attack against buildings with alarm systems and an attack against the PNP headquarters by lawless elements. Plans shall be likewise be made for blockade and jail emergencies and for special community events, such as longer public meetings, athletic contests, parades, religious activities, carnivals, strikes, demonstrations, and other street affairs. • Operational Plans – these are plans for the operations of special divisions like the patrol, detective, traffic, fire and juvenile divisions. Operational plans shall be prepared to accomplish each of the primary police tasks. For example, patrol activities must be planned, the force must be distributed among the shifts and territorially among beats, in proportion to the needs of the service, and special details must be planned to meet unexpected needs. Likewise in the crime prevention and in traffic, juvenile and

42. vice control, campaigns must be planned and assignments made to assure the accomplishment of the police purpose in meeting both average and regular needs. Each division or unit has primary responsibility to plan operations in its field and also to execute the plans, either by its own personnel or, as staff agency, by utilizing members of the other divisions. Plans for operations of special division consist of two types, namely: (1) those designed to meet everyday, year-around needs, which are the regular operating program of the divisions; and (2) those designed to meet usual needs, the result of intermittent and usually unexpected variations in activities that demand their attention.

43. Regular Operating Programs – these operating division/units shall have specific plans to meet current needs. The manpower shall be distributed throughout the area of jurisdiction in proportion to need. Assignments schedules shall be prepared that integrate such factors as relief days, lunch periods, hours, nature, and location of regular work. Plans shall assure suitable supervision, which become difficult when the regular assignment is integrated to deal with this short time periodic needs. Meeting usual needs – the usual needs may arise in any field of police activity and nearly always met in the detective, vise and juvenile division by temporary readjustment of regular assignment.

44. Extra-office Plans – the active interest and the participation of individual citizen is also a vital to the success of the PNP programs that the PNP shall continuously seek to motivate, promote and maintain an active public concern in its affairs. These are plans made to organize the community to assist in the accomplishment of objectives in the fields of traffic control, organize crime, and juvenile delinquency prevention. The organization may be called safety councils for crime commissions and community councils for the delinquency prevention. They shall assist in coordinating community effort, in promoting public support, and in combating organized crime. Organization and operating plans for civil defense shall also be prepared or used in case of emergency or war in coordination with the office of the Civil Defense.

45. Management Plans – Plans of management shall map out in advance all operations involved in the organization management of personnel and material and in procurement and disbursement of money, such as the following: Budget Planning – present and future money needs for personal, equipment and capital investments must be estimated. Plans for supporting budget request must be made if needed appropriations are to be obtained. Accounting Procedures – procedures shall be established and expenditure reports be provided to assist in making administrative decisions and holding expenditures within the appropriations. Specifications and Purchasing Procedures – Specifications shall be drawn for equipment and supplies. Purchasing procedures shall likewise be established to

46. insure the checking of deliveries against specification of orders. Plans and specifications shall be drafted for new building and for modeling old ones. Personnel – procedures shall be established to assure the carrying out of personnel programs and the allocation of personnel among the component organization units in proportions need. Organization – a basic organization plan of the command/unit shall be made and be posted for the guidance of the force. For the organization to be meaningful, it shall be accompanied by the duty manual which shall define relationships between the component units in terms of specific responsibilities. The duty manual incorporates rules and regulations and shall contain the following: definition of terms, organization of rank, and the like, provided the same shall not be in conflict with this manual.

47. STEPS IN POLICE OPERATIONAL PLANNING • Frame of Reference – This shall based on a careful view of the matters relating to the situation for which plans are being developed. Opinions or ideas of persons who may speak with authority of the subjects and views of the police commanders, other government officials, and other professionals shall be considered. • Clarifying the Problems – This calls for the identification of the problems, understanding both its records and its possible solution. A situation must exist for which something must and can be done. For example, an area in a city or municipality is victimized by a series of robbers. There is a need for reaching the preliminary decision that robberies may be reduced in the area, and that the pattern of operation, in general, is one by which the police can reduce them.

48. Collecting all Pertinent Facts – No attempt shall be made to develop a plan until all facts relating to it have been carefully reviewed to determine the modus operandi, suspects, types of victims, and such other information as may be necessary. Facts relating to such matters as availability, deployment, and the use of present personnel shall be gathered. • Developing the Facts – After all data have been gathered, a careful analysis and evaluation shall be made. These provide the basis from which a plan or plans are evolved. Only such facts as any have relevance shall be considered.

49. Developing Alternative Plans – In the initial phases of plan development, several alternative measures shall appear to be logically comparable to the needs of a situation. As the alternative solutions are evaluated, one of the proposed plans shall usually prove more logical than the others. • Selecting the Most Appropriate Alternative – A careful consideration of all facts usually leads to the selection of the best alternative proposal. • Selling the Plans – A plan, to be effectively carried out, must be accepted by persons concerned at the appropriate level of the plan’s development. For example, in a robbery case, the patrol division head may be preparing the plan. At the outset, the detective chief is concerned and shall be consulted. As the planning develops, there may be a need it involve the head of the personnel, records and communication units and all patrol officers.

50. Arranging for the Execution of the Plan – the execution of a plan requires the issuance of orders and directives to units and personnel concern, the establishment of a schedule, and the provision of manpower and the equipment for carrying out the plan. Briefing shall be held and assurance shall be received that all involved personnel understood when, how, and what is to be done. • Evaluating the Effectiveness of the Plan – The results of the plan shall be determined. This is necessary in order to know whether a correct alternative was chosen, whether the plan was correct, which phase was poorly implemented, and whether additional planning may be necessary. Also, the effects of the executed plan or other operations and on total police operations shall be determined. Follow-up is the control factor essential for effective command management.