Setting The Example

From my favorite streetside coffeeshop I get the opportunity to watch people at different times of the day and night, and one group I like to watch more than any other is the police. As a former policeman myself, I have a keen interest in both their behavior and their effectiveness, but as a long-time resident of the Philippines, with a natural desire to live in a safe and peaceful environment, I have to ask a question: Why does this country's lead law enforcement agency do such a poor job of setting the example for the rest of us?

I'm talking about the simple things, like following traffic rules. The law applies to everyone, but even more so to the police. No matter how strictly the enforcement, the public will never obey laws that the police themselves ignore. This concept is one of the cornerstones of law enforcement, and must not be underestimated in the drive to achieve a self-disciplined society. A policeman, who runs a red light without proper justification, or indeed without using the appropriate emergency equipment, is just as much a lawbreaker as any ordinary citizen. And the fact that the PNP has to spend money to maintain hundreds of cars doesn't make it any more legal to drive one without headlights than the average citizen who owns only one.

Many policemen mistakenly believe that their duties allow them to disobey laws whenever it's convenient to do so. Police patrol cars are frequently seen going the wrong way down a one-way street, cruising casually through a red light, or driving at night without any lights. Policeman on motorcycles behave almost like kids on bicycles, and rarely obey any traffic laws at all. In fact, most days I probably see more police motorcycles driving on the sidewalk than on the regular street. Private security agencies, while not officially law enforcement bodies, are even worse about this, with almost all of their vehicles moving around on the public streets and sidewalks, against the flow of traffic and with all their lights turned off.

The Philippine National Police likes to talk the talk, and claims to be making great strides toward professionalizing the force. To be fair, they have made a lot of improvement in recent years, but real change will only come when the individual policeman can be seen routinely obeying the laws of the land. All the laws. At first it will take strict supervision, and quite a few reprimands. But in a truly just society, the laws must apply to everyone. And as I said before, how can government enforce laws that its own people don't obey?

This may seem like a minor nuts-and-bolts issue, but the truth is, the nuts-and-bolts are where the country needs the most work.

Naming Names

There was an interesting article in today's Philippine Daily Inquirer, on page A22 of the sports section, entitled "A heavyweight secret the Philippines can't afford", by Recah Trinidad. In short, the article reports that an unnamed Filipino rented a luxury suite in the MGM Grand Villa I, at a cost of US$20,000 per night, while attending the recent Morales-Pacquiao prizefight. The author offers several clues to the identity of the big spender but never actually reveals the name. He rules out several well-known wealthy Filipinos, and even says that the guy is "a lot bigger than a congressman", but refuses to name the name, on the grounds that it would be a "political bombshell".

This game of revealing a wrongdoing but refusing to identify the perpetrator is a common practice here, not only by the press, but also by government officials. It's not unusual to hear an elected official publicly, and indignantly, releasing an "expose" in which he reveals ALMOST enough detail to identify an erring official, but refuses to give the name out of "delicadeza". Amazingly, in a country where so many officials abuse the public trust, and where so many suffer as a result of that abuse, we still place a higher value on the need to avoid embarrassing or shaming a guilty party. This is something that must change, or we will never be able to control the massive theft that happens right under our very noses every day. In my opinion, there is something much bigger at stake here than protecting the honor of someone you have already implied to be dishonorable.

But, then again, maybe we really don't want anything to change. Maybe we like the system just the way it is. Anti-corruption consultant Tony Kwok recently suggested that we need to start a shame campaign, to embarrass people into behaving honorably. But his recommendation drew immediate fire from a number of elected officials, who seemed to feel that this practice would violate individual dignity and even human rights. My question is, "whose rights are violated when an official spends $20,000 per night renting a luxury hotel in Las Vegas?" Could it be the thousands of poor and hungry Filipinos who might otherwise have benefited from that money? I think their need far outweighs the needs of delicadeza.

Law Enforcement: The Importance Of Documentation

Modern law enforcement is a science, with technology and methods that put the old ways to shame. We still rely heavily on citizen complaints, but instead of simply waiting for crimes to be reported, as the old village policeman used to do, we now analyze data to predict when and where they will occur. Instead of just roaming the streets randomly, we use crime statistics to plan patrol routes. This doesn't require high-tech equipment, but it is scientific. With the power of information, law enforcers can identify areas where crimes are likely to occur, and then increase police coverage in those areas, drastically improving their chances of preventing more crimes, and possibly even catching a few bad guys red-handed.

The information the police need to make this analysis effective, and indeed, the information they need to fight crime in general, comes primarily from one source: the citizen complaint. Ordinary Filipinos filing reports of crimes they either witnessed or experienced.

Whether they receive these reports through an anonymous telephone call or by a personal visit to the local police station, the police record every complaint in the station "blotter", and sometimes follow up with a more detailed incident report. Blotters and incident reports serve two main purposes. First, they document the facts of an incident, and serve as a basis for further investigation. Secondly, and possibly more importantly, they provide valuable data that can be analyzed to help predict when and where other crimes may occur, and to evaluate police effectiveness. The key to making this work properly is to record every incident, and to use a standardized format to make the analysis meaningful.

Over the years, I have had the opportunity to file a few police reports at my local precinct. The "blotter" in which those reports were recorded was typically a hardbound notebook, the kind available at any bookstore. Each time, the complaint was written in a single paragraph, without any subject, headings, or keywords. Only the time was written to the left of each entry. I once went to a local police station to get information about an incident that had happened a few months before, but I didn't know the exact date. To find the correct blotter entry, the officer had to scan the text of 10 or 20 pages. It was obvious that the blotter was not organized to locate information easily. In fact, it was not organized at all. Without labels to distinguish one entry from another, it would be nearly impossible to collect the information into any kind of report to higher headquarters. And yet the police routinely announce that, according to crime statistics, "there were 97 cell phone thefts reported this month". From the blotters I've seen, it would require a full-time employee at each station to gather those statistics regularly. We have to assume then, that the statistics reported by the PNP are not even close to the real crime situation in the country.

The way the system really works is this: When someone files a complaint at a police station, the information goes in the blotter. If he chooses to do so, the complainant can file a formal report, but it will take more time, and of course there is a "filing fee" involved. The average citizen doesn't see the need for the extra effort, and usually leaves the process at this point. The problem is, only the formal reports are counted when compiling crime statistics. The more numerous blotter entries, which actually give a more accurate picture of current conditions, are simply hand-written into a book which eventually gets filed away.

If crime data can't be accurately reported, how can it possibly be analyzed? There are simple procedures, used by police departments around the world, that the PNP can adopt to immediately improve this situation, without the need for expensive, high-tech equipment. By enforcing simple guidelines, blotter entries can be formatted with standardized headings, designed to make statistical analysis more effective. Higher headquarters, at several levels, can collect and analyze this information daily.

Crime trends and statistics are not simply for reporting purposes. Professional law enforcement agencies use such information to plan their counter-attack against criminal elements. But the data has to be accurate, and it has to be accessible, or the entire process is useless.

Corruption: The Depth of the Problem

Corruption exists in every country of the world. In some places it is a minor nuisance that can barely be measured. In others, corruption is deeply rooted in every aspect of daily life. Sadly, the Philippines falls squarely into the second category. Business organizations and international surveys routinely rank the Philippines among the world's most corrupt countries. In fact, surveys such as Transparency International's "Corruption Perception Index" seem to show that the Philippines is getting steadily worse. Government's response to these reports typically starts with a declaration that they are "unfair" and that "we are doing our best". In practical terms though, statements like these and others like "we have the will" and "we are committed" are meaningless. The technical procedures for preventing corruption are simple and straight-forward, but they require stepping on high-placed toes, because many of those high-placed toes are involved, directly or indirectly, in corrupt activities. Despite arguments to the contrary, the inability of the government to control corruption is not a result of "we can't catch them". It's a result of "we're not really going after them".

The biggest challenge in any anti-corruption campaign in the Philippines is the system itself. Networks of business, social, and family relationships discourage even the authorities from making accusations against anyone with just a little power. A telephone call to a friend can stop an investigation against you or someone you know. Sometimes even that phone call isn't necessary, since the authorities may be hesitant to go after a person known to have connections. I'm not talking about "the authorities" as an institution. I'm talking about the individual people in government who actually make things work. There is a big difference between the two.

In fairness to the Philippine Government, there does seem to be a new attitude taking hold, driven by a flood of international reports and surveys which paint a very gloomy future for the country. The senior leadership, at least, seems to understand that the situation cannot continue as it is. A pretty intensive campaign against corruption is ongoing, and it seems to be reaching all the way to the lower levels, where the problem is most entrenched. The question is, will this just be another brushfire effort, which burns hot but burns out fast, or will we actually see some permanent change? Only time will tell.

A quick glance at the Philippines reveals a structure very similar to other governments around the world, with laws, regulations and safeguards enough to make the system run properly. But, on a day-to-day basis, the people who actually implement those procedures operate much more informally. This is exactly where government breaks down and a purely network-based organization takes over. This shadow structure defines both the implementation and the enforcement of Philippine Government processes, from the municipal to the national level. Regardless of the level, the reason this informal system thrives is simple. I've said it before: we routinely do not follow (or enforce!) laws, rules, regulations, or procedures. This situation is not unique to the Philippines, and in fact, many of the things I will describe here are characteristic of governments and government officials around the world. The differences between corruption in one country and corruption in another are differences of degree rather than design.

In addition, there is a common feeling among many government officials, a view which seems to be shared by many civilians as well, that profiting from corruption is not really wrong, and is in fact an entitlement of public office. A survey last year by the Asian Institute of Management reported that "...some executives already regard behavior or actions commonly perceived as wrong as 'wrong only sometimes.' Moreover, eight out of 100 executives believed it was not always wrong to do something that was inherently wrong, as long as it was for friendship, position, or seniority." [Business World, 6 July 04] Personally, I suspect that many of those who responded to the surveys were not completely truthful in their answers. I think the numbers are really much higher.

If this really is the general attitude, then it is unlikely that citizens, either in or out of government, will ever really join the fight against corruption until they believe that it is in their interest to do so. To change that mindset, it is necessary to personalize the effects of corruption, rather than simply trying to preach "This is right and this is wrong". Everyone agrees that corruption in general is a bad thing, but the specific practices that make up corruption are not always seen in such a bad light. It may be more effective to emphasize the harmful impact of those individual acts, by constantly exposing people to the ways that corruption affects them personally. The idea is to eventually make such behavior distasteful, and to then bring social pressure to bear on corrupt officials at all levels. Changing the way people view corruption must be the goal of a very long-term, but very necessary, public education campaign.

The statistics of corruption are reported all too often, but they bear repeating. According to the Manila-based group Procurement Watch, 1/5 of the national budget and 15% of the cost of all government contracts is lost to corruption every year. 1/5 of the national budget! Put another way, that means we lose an entire year's budget every 5 years. Granted, those figures are only estimates, and it's probably not possible to determine the actual amounts with any certainty, but whatever the numbers, the bottom line is this: Filipinos are stealing the food right out of the mouths of Filipinos. And let's make something absolutely clear, right from the beginning. These surveys and reports always use phrases like "lost to corruption" and "unaccounted for" as if money had just evaporated because someone forgot to put the lid on the bottle. The reality is, corruption is theft, plain and simple. When a citizen is asked to pay an additional "fee" to expedite his request for a government service, that money goes straight into the pocket of the clerk on the other side of the window. It's not a "service fee", no matter what he says. That government employee is a thief, and he has just stolen money from the citizen.

Corruption is not just an aspect of Philippine culture; it is entangled in the very fabric of daily life. The average Filipino, rich or poor, considers under-the-table payments to be a fact of life. The poor pay because they have no choice, constantly borrowing money to get through the red tape of life. The middle class and the wealthy also pay, because it's a convenient way to bypass bureaucracy and because it is the only way to compete with everyone else who pays. When dealing with Government, the customer finds obstacles and delays at every turn, leading him to look for an easier way through the process. Juan Dela Cruz (John Q. Public, for the American reader), faced with these seemingly unending bureaucratic roadblocks, will eventually start to think "there must be a way to cut through all this red tape!" And as soon as he asks that question, the clerk behind the counter offers the answer. In fact, much of the procedure and delay involved in obtaining any government service seems almost intentionally designed to encourage the customer to ask that very question. “Designed” may be the wrong word, but procedures have certainly been allowed to evolve in that direction.

These payments are not a rare occurrence. It is my opinion, based on countless conversations with Filipinos and foreigners alike, that the many surveys and statistics which describe the extent of corruption in the Philippines don't even scratch the surface of the problem. Not even the honest corruption-fighters want to admit just how deep it really goes.

Corruption exists at every level of society, in both the government and private sectors, at the national level and at the Barangay. In the world of government contracting, for example, the popular term is "SOP". Traditionally, that abbreviation stands for "Standard Operating Procedure", a term that describes something so commonly done that you don't even have to talk about it. In the Philippines, SOP means the kickback that a government official automatically requires before any contracted project under his jurisdiction can begin. The amount of this payment is typically 15 - 20% of the budget for the entire project, although it is sometimes much higher. SOP usually has to be paid up front and, depending on the size and scope of the project, the blessing of several officials may be needed. In cases like that, the 20% kickback is not always shared among the wolves. Rather, the winning company often has to pay each official separately, sometimes jacking up the total cost of the project by 60% or more. Those with government contracting experience already know the SOP of particular officials, so the subject never even has to be discussed. Hence the term "Standard Operating Procedure". We'll come back to this a bit later, but for now it's important to recognize the fact that corrupt activity is usually known to everyone, and protected with a wink and a nod.

The fact that most people don’t see anything wrong with corruption means that new laws or harsher penalties will not have a significant impact on the problem. The real answer lies in “corruption-proofing” the system, by implementing procedures that make it physically impossible to complete a corrupt act.

Conventional wisdom says that government must prosecute a few "big fish" if it wants to prove it is serious about fighting corruption. This is certainly true, from the all-important public relations angle. But it is also true that this is the one act government finds very difficult to do, for a variety of reasons. While I am not advocating letting the "big fish" get away, I do not believe they are at the heart of the problem. Corruption is tolerated at the top, and there is no doubt that those at the top benefit most, but the self-sustaining nature of the problem comes from the fact that it permeates all operations at the lower-levels. A permanent cure will only come when we clean up the system at the bottom. In fact, we do that by enforcing procedures, and by prosecuting violators of those procedures. Untouchable corrupt senior officials will find it much more difficult to steal government money if the junior employees below them are afraid to break the rules.

While there are certainly some officials who steal millions of pesos through corruption, the real problem is more like shoplifting in a local convenience store. On its own, each theft may be only a pack of candy or a bottle of perfume, and we may even feel sympathy for the "poor" rogue. But over a year, and across the entire chain of stores, those seemingly harmless thefts can add up to millions. That's why, in many countries, every shoplifter is prosecuted, even if they only took a pack of gum. This is exactly what is going on in the Philippines, and this is exactly how we have to solve the problem.

Corruption: Definitions

Corruption. noun. 1. impairment of integrity, virtue, or moral principle; depravity. 2. decay; decomposition. 3. inducement to wrong by improper or unlawful means (as bribery). 4. a departure from the original or from what is pure or correct.

Merriam-Webster

English Dictionary

Corruption: The misuse of entrusted power for private benefit.

Transparency International

Misplaced Priorities

Just a little observation today... In today's Philippine Daily Inquirer, the Armed Forces Chief of Staff, General Efren Abu, talked about the AFP budget. In short, he compared the budget to neighboring countries and said that it is too small considering the AFP's responsibilities.

According to the news report, General Abu said that "critics who complained that defense spending ate up funds that could be used for more productive purposes such as education, health, and other basic services, ignore a fundamental axiom that security is a precondition for development. "

He added that "Far from being a luxury, an adequately equipped armed forces is rather a crucial investment for national progress." He then drew a comparison between defense spending and NPA strength, showing that insurgent forces reached their peak in 1985 as a consequence of a drop in defense spending."

I agree 100% that every country needs a strong military, and with one of the world's longest running insurgencies, the Philippines is no different. But I would like to twist the AFP Chief's words a bit, and say that "development is also a precondition for security." It's very possible that, during the period of decreased defense spending, the Philippine Government may have been spending less for basic services as well. Inadequate government support is most likely the more relevant factor which fuels lawlessness and dissatisfaction in the country. In a later post I intend to address the insurgency, and discuss what I think are the root forces that drive farmer's son's to take up arms against their own government. I believe my last statement gets to the heart of the issue. Stay tuned.

One Country. . .One Standard

So, now we've given the speech. We've told the people we will treat them fairly, and that they should trust us to keep our word. If we sounded sincere enough, they may believe us, at least for a little while. That's a great start, but how do we keep that trust, and strengthen it, before they decide that this is just another soundbyte speech, like so many others they have heard throughout their lives?

In many developed countries the national government can be seen and felt, in exactly the same way, no matter which part of the country you are in. In the United States, no one refers to California, or even Alaska or Hawaii, as "outlying states". No one calls Okinawa or Hokkaido the "hinterlands" of Japan. In the Philippines though, government radiates outward from the national capitol, decreasing in visibility and effectiveness the farther one travels from Manila. Although it may be slowly changing, many Filipinos still consider it a fact of life that they have to travel all the way to the capitol to avail of many government services.

To be truly effective the national government must be seen and felt in a standardized form throughout the country. At the very least, each region or province should have a "national government building" in which all major service agencies are represented. No matter where he lives, every citizen must have immediate access to the same services as are available in Manila.

This is the real meaning of "decentralized government". This is a popular subject of discussion, particularly among local leaders, who believe that the answer to the problem of a government centralized in the capitol city is to "devolve" more government functions down to the local level. That is true for some services, but many functions of national government must remain in the hands of national government. The goal should be to increase contact with the public, not to add another layer of bureaucracy. The proper way to decentralize government is to directly and effectively deliver its services and influence in exactly the same way across the entire country.

Along with services, government obligations must be carried out in the provinces with the same vigor as in the capitol. Road repair, education, and most importantly law enforcement must be conducted in exactly the same way in every part of the country. A police station in Patikul, Sulu must be similarly equipped and must follow the same procedures as one in Metro Manila. This means they must wear the same uniform, fill out the same reports, and offer the same services, in accordance with the same laws. A state of lawlessness exists in some parts of the country simply because government operates outwardly rather than in parallel. Like a large room illuminated by a single lamp, the country is filled with shadows and dark spots. And those shadows are usually filled with all sorts of vermin. Much better to evenly distribute rows of lightbulbs which bathe each part of the room with the same amount of light. It is much harder for corruption and lawlessness to prosper when there are no shadows to hide in.

A Message From The Top

Leadership starts at the top. And for a country like the Philippines, whose officials have long been accustomed to little direction from above, a leader who wants to take charge must start by laying down the law. This is best done with an honest, hard-hitting statement, made to the entire country, to set the tone for the administration, and set the direction for the nation. If I were to write the speech, It might sound something like this...

"My fellow Filipinos. Today our country stands on the edge of a cliff. Lawlessness, corruption, and poverty are pushing us over the edge, and both our citizens and our leaders are just watching it happen. Today I say "enough is enough!" No one is going to help us until we help ourselves...and no one should. This is our problem and we have to solve it ourselves. The Philippines is our home, and it's time to clean house.

The place we're going to start, because it is the root of most of our trouble, is with law and order. Many of the problems we face, from corruption to traffic to general peace and order, result from the fact that we simply don't obey our own laws. This country is founded on the Rule of Law and we are going to start obeying our laws. It is the responsibility of every government employee, all the way up to Malacanang, to do his job to the best of his ability, without asking for favor, gratuity, or reward. That is the law. This country, and this administration, will not tolerate any more graft, corruption, cronyism, nepotism, or lawlessness of any kind. Any government employee who breaks the law, any law, will be relieved and prosecuted. Not placed on floating status, not transferred, but fired. One strike and you're out. Any private citizen who breaks the law will likewise be prosecuted. This applies to everything from parking in a no-parking zone to offering or accepting a bribe in the halls of government. And it applies to every citizen, regardless of rank, wealth, or position. No exceptions, no delays. Our country will never change unless we ourselves change. We have to start following our own rules and obeying our own laws.

There are no magic answers that will make our problems disappear without hard work. But there are simple solutions. Controlling traffic takes nothing more than a policeman standing in the street, enforcing the law. The whole law, not just the bits and pieces he wants to enforce. Stopping corruption requires nothing more than strict supervision and accountability. I expect every citizen of this country to get involved, either by taking action or by reporting inaction. The problems we face affect us all, and there can be no bystanders. If you know about a crime but you don't report it, then you are part of the problem. I urge you to be part of the solution.

The purpose of government is to manage the country's affairs and safeguard the welfare of its citizens. Public office is not a privilege, it is a responsibility. As your President, It is my duty to make sure that your government carries out that responsibility properly and efficiently. That means passing and enforcing laws that are in the best interest of the country as a whole, not just for the elite or influential. It also means spending your money wisely and carefully. There can be no individual or group whose interests take priority over the common good of our nation.

Our country is not hopeless. We still have a chance to lift ourselves up and become great. But we have to do it now, and we have to do it together. Like a family, we have to look out for each other. But also like a family, one of our biggest challenges is money. In order to function, our country needs to earn money and it needs to spend that money wisely. My job, as President, is to make sure that every peso the government collects is accounted for and put to good use. Among our citizens there is a widespread belief that much of the money we pay for taxes and government fees eventually ends up in someone's pocket. We don't have much faith that it will actually be used to operate the government and to improve our lives. We also believe that a good portion of that money is wasted by our terribly inefficient government. I think you are right on both counts. And I will stop it right now. As the Chief Executive, I am ultimately responsible for enforcing our laws. I promise you right now that I will institute a system of checks and balances that will make it almost impossible for a government employee to steal your money. And make no mistake, when a government clerk tells you that he can speed up your request for an additional "fee", that is not simply the cost of doing business. That person is stealing your money and putting it into his own pocket. I will not tolerate this, at any level. And I will stop it.

Your government, my fellow citizens, is responsible for spending your money properly. I guarantee that I will make that happen, but you also have a responsibility. Plainly and simply, you have to pay your taxes. I understand that life is hard for many Filipinos, and that an unforgivable number of you don't even know when your next meal is coming. It is unfair to ask the poorest among us to carry such a heavy load, but the load must be carried. I intend to revise our tax laws to ease the burden on those who are less able, and to shift it to those who can more readily afford it. For far too long, government has worked to the advantage of those with position and wealth, oblivious to those in need. I promise to improve government services so that the poor will not be overwhelmed by the simple act of living. Going into the hospital for routine surgery should not force a family to sell off their property or lose their business. Enrolling a child in school should not send a mother into debt. Government is responsible for providing basic social services like these, but somebody has to pay for it. I promise to use your money wisely, but you have to pay your taxes. I am talking to every citizen, but I mean for the rich to pay special attention. This country has given you a life of comfort and security, and your obligation is great.

When a car is running well, you can always improve its performance by making minor adjustments here and there. Cleaning the sparkplugs or using a higher quality fuel will give a little better mileage. But when the motor leaks oil and blows black smoke, then it's time for a major overhaul. My friends, our country doesn't need fine tuning or minor adjustments. That time will come a little later. Right now we need an overhaul. We need to make major changes to the way we operate, and we need to make them now. We need to concentrate on the most basic fundamentals of running the country. We need to make sure that every Filipino has a job, enough to eat and a proper roof over his head, as well as clean water, adequate health care, and education. The way we will do that is by accounting for our limited resources to guarantee that every peso is spent as wisely as possible. When a man can't afford to feed his family, he certainly shouldn't waste money on luxury items or expensive clothes. Today, the Philippines is very much like that family. For the next year, we must carefully consider every peso we spend. We must work from the bottom up, making sure that the basic survival needs of every Filipino are met. This will ensure that our country has a strong foundation. Only then can we build a strong republic.

The problems we face are great, but the solutions are simple. Our citizens don't take up arms against the government because of poor economic indicators or high foreign debt. The truth is, people are desperate because many of them can't feed their own families and because they can't turn to their own government for help. This is not right. And it has to change.

Time is running out. I will do these things, but I need your help. I need you to obey the law and to pay your taxes. I also need you to communicate with your elected representatives and demand that they work for you. As I said before, no one can be a bystander.

This country is our home. Let's clean it up and be proud of it."

Let's Get Down To Business!

Ok, we've spent enough time talking about the way things are, and the way things should be! It's time to get down to business and start making some changes. I've spent a lot of time watching and asking questions, and I have a few suggestions. Some of my ideas are not new, and this is certainly not the only plan out there, but it is a plan. And as my father always said: "Before you start anything, you gotta have a plan!"

So please stick around. I think you'll find the next few articles interesting. And please spread the word about this site. If we make enough noise, maybe we can make a difference!

A Leader's Responsibility

The senior leadership in the Philippine Government is very fond of the idea that individuals and departments should be allowed to operate independently as much as possible. Perhaps this is to avoid accusations of micromanagement, or more likely because intrusion so often results in turf wars or feuds. The result of this approach though, is a lack of supervision and a lack of accountability. This leaves officials, even at very senior levels, free to perform poorly or not at all, without consequence. In addition, it opens up a variety of opportunities for corruption. Although it's certainly possible for a leader to become too involved in the control of a subordinate's operation, we have to dispel the notion that any supervisory oversight is automatically micromanagement. The two are simply not the same thing. A manager must ask questions: "what are you doing?"... "how are you doing it?"..."show me your results." This is not micromanagement. It is, in fact, responsible management.

The idea that each government agency is autonomous contradicts the principle that each must be accountable. They cannot be both. This applies at all levels of government, from the Supreme Court, to the Department of National Defense, down to the smallest Barangay. No individual or government entity can be so autonomous as to be free from oversight.

Accountability

The government of the Philippines, like any democratic government, is made up of an entire army of officials, elected, appointed, or hired to manage the country's affairs. Each one is king of his particular hill, and each manages his department as he thinks best. Each tries hard to protect the interests of his department and to make sure that projects within his jurisdiction get the highest priority.

An effective government though, requires that all parts operate with a common purpose. One department may have to sacrifice so that another may complete a function which has a higher priority. Or one office may have to merge its goals with those of another for the greater good. Naturally, and rightfully, the people in charge of those offices and departments would never willingly sacrifice their own interests in favor of another. And so a leader is needed to manage the team and to make decisions that transcend the individual interests of lower level departments. A leader who can enforce laws and policies across the board, without regard for favors or perceived obligations.

Filipino culture recognizes that a favor done requires a favor in return, but in the world of government, this is not only inappropriate, it also runs counter to the good order of the country. The cultural rules that dictate the way people interact in the private world have no place in government.

An effective government should be managed very much like a corporation. The CEO, who is usually elected by the Board of Directors or by the stockholders, is charged with the very important responsibility of appointing qualified people to manage each department. Those managers, and the CEO himself, are then regularly evaluated on their performance and effectiveness. In the corporate world, when a manager fails to perform as required, or botches a critical assignment, the company leadership will usually demote him or fire him. Either way, the manager is held accountable for his performance.

From the company's point of view, this serves two purposes. First, an inadequate performer is removed from an important position and replaced with someone more capable. This eliminates a weak link and keeps the company running at peak efficiency. And second, it sends a clear signal to other managers that there is a consequence for sub-standard performance. The company may be sympathetic to the manager's sense of dignity, but it cannot afford to let that sympathy weaken the organization.

If the manager's failure involves some kind of crime, it may be appropriate to file criminal charges against him. But that is secondary to the company's goal of efficient operations. Leadership is not about gathering evidence and filing cases, and leaders do not always need an airtight legal case before action can be taken. Just replace a bad performer with someone more capable. We do it with junior employees every day.

In the Philippine Government, we often hear very senior officials admitting that they serve at the pleasure of the President, and that they understand they may be relieved at any time. But when they find themselves facing dismissal, we suddenly hear them loudly complaining that the action is "unfair" and that they were not afforded "due process". Effective government, like effective management, cannot operate this way. The benchmark is simple: Was the goal accomplished? If a manager is not performing, government must replace him with someone who can -- immediately.

And if you fire a man because he was not up to the task, it makes no sense to give him a different job to let him save face. A poor performer is a poor performer, no matter where you put him. Moving him to a different position is just asking for failure in another department. This applies at all levels of government.

The National ID System

I’m going to switch subjects for just a bit, and discuss the idea of a national ID system, which is back in the news again.

Always the subject of heated debate, the national ID system is a controversial and emotional issue for many Filipinos. The fear of abuse, and indeed the potential for it, is high, given this country's history. Nevertheless, government must have the ability to accurately identify its own citizens. This is not only necessary from the standpoint of law enforcement, but more importantly to allow basic social mechanisms to function properly. Medical benefits, social services, even cashing a check all require that a person's identity be verifiable. And of course, it is only possible to know if an arrested person is wanted for a previous offense if his identity can be clearly determined. Without some form of accurate ID system, that is not possible. On a recent television talk show, the host mentioned that he is frequently misidentified as another person with the same name, who happens to be wanted for some sort of offense. The host said that he finds it difficult to travel, since his name triggers an alert at the immigration counter whenever he tries to depart the country. In most cases in the Philippines, the name alone is the sole identifier used to distinguish one person from another.
Many governments around the world use a national ID system. Most developed countries, however, rely on a combination of routine ID cards to cover the majority of their population. In the United States, for example, almost every adult has a driver's license. While it's not a foolproof form of identification, enough care is taken when it is issued that most businesses (and government offices) are satisfied with its validity and accuracy. In most states, the same office that issues driver’s licenses can issue an identification card, similar in style, for those residents who don’t drive.

In the Philippines, there are a variety of widely issued forms of identification that collectively cover most of the adult population. Driver’s licenses, military and government employee ID’s, voter’s ID’s, passports, Philhealth (Philippine Health Insurance Corporation) Cards, and taxpayer ID’s are held by millions of Filipinos. Most of these are high-quality, computer-generated cards, containing enough information to clearly identify the holder. Less sophisticated, but still commonly used, are postal ID cards, issued by the local Post Office, and residence certificates, commonly called cedula, issued by a city government. Between all of these, most adult Filipinos are eligible for some form of reliable, government issued identification card.

The problem in the Philippines is not the card, but rather the identification process itself. With some exceptions, little care is given to validating the information presented by the applicant before one of these ID cards is issued. In the course of my work in the private security industry, I have handled all manner of ID cards. I have seen a number of postal ID’s for example, issued to transvestites, with a photograph of the man dressed as a woman, and bearing a woman’s name. Even though this is a very basic identification card, the issuing authorities are still supposed to go through a certain verification process before issuing the card. In this case, I doubt that the male applicant’s real name was “Stephanie”, or that his true appearance included earrings, makeup, and false eyelashes. This might be a humorous example, but in reality the card will be the basis for identifying that person when opening a bank account, applying for a job, or notarizing a contract. In those cases, it’s not too much to ask that the information on the card be accurate. A little supervisory oversight can ensure that it is.

The objection that most people have to a national ID system is not really to the card, but rather to the collecting of citizen’s information into some sort of massive database. There is a fear that such a list could be abused by law enforcers in a variety of ways. According to the UK based watchdog group Privacy International:

The threat of insurgents or political extremists, and the exercise of religious discrimination have been all too common as motivation for the establishment of ID systems which would force enemies of the State into registration, or make them vulnerable in the open without proper documents.”

I agree completely that registration systems are potentially dangerous, a statement that history has validated many times over. But that doesn’t necessarily mean that we shouldn’t have a way to identify the man on the street.

A national ID system would involve the issuance of tens of millions of cards to cover the entire adult population of the Philippines. But before that can happen, there must be debate and decisions about what information the cards will carry. The debate itself will be time-consuming and costly. Once those issues are finally decided, a very expensive contract must be awarded. As is typical in the Philippines, this will undoubtedly lead to more debate, and will certainly take a very long time to go from idea to action. And most certainly, the possibility is high that corruption will figure in the process of choosing a supplier. Finally, the logistics and expense of actually issuing an ID card to every adult in the country will be on the scale of a national election. In addition to all that, a database with the names of all adults in the country must be developed and accurately maintained. It’s not enough just to create the list. New registrants must be added quickly, and that means receiving and entering volumes of data from all parts of the country on a continuing basis. This will require staff and equipment in permanent offices.

In the face of that incredible expense, combined with the uncertainty of public acceptance, it does not make sense to consider implementing a whole new national system, especially when there are already several types of ID in widespread use. It is much more practical to spend a fraction of that money, and only a portion of the time, to strengthen those existing systems. Each of the ID's mentioned above serves a legitimate, useful purpose. Cleaning up those systems, by improving the verification process, and automating those databases, will make the ID's more effective for their original purpose, and will fulfill the need for a national system at the same time.

This is a much more efficient use of public money, and it addresses the problem directly, rather than through a workaround solution. The public will almost certainly see the benefits of this approach, and support the idea much more enthusiastically.

Supervisors Have To Supervise

The frontline enforcers in any government, and indeed, the ones who have the greatest power to effect change, are the field supervisors. I'm talking here about office managers, shift leaders, OIC's, and all the other people who directly manage the workforce.

A supervisor's role is to make sure the employee knows his job, and that he performs his duties properly. If a traffic cop is not at his post, or is not working aggressively, his supervisor is responsible. If a city inspector is operating so independently that he is able to accept bribes, his supervisor is not supervising. Corruption doesn't usually happen behind closed doors. In all likelihood, the supervisor sitting in the next room knows what's going on and has a responsibility to take action.

A few years ago there was a scene in a movie in which a terrorist kept control of his hostages by threatening "If anyone moves, I will shoot you and the man next to you!" Any hostage who thought his neighbor was about to try something was quick to discourage the act, for fear of suffering the consequences himself. The point is, if you can't motivate the individual to behave responsibly, then motivate those nearby, by holding them accountable for the actions of their coworkers. If a supervisor knows, without a doubt, that he'll be penalized for the poor performance of his subordinates, I guarantee he will watch over their shoulders as they work. Nothing motivates people better than fear of consequences, and if you apply that motivation all the way up and down the chain of command, and demonstrate that you will actually hold people accountable, both for things they have done and for things they know have been done, you may find a working government buried beneath the bureaucracy.

Firmly holding managers responsible for the performance of their subordinates is a critical part of cleaning up the mess in this country. And the very top rung of this leadership ladder is in Malacanang.

The Way It's Supposed To Work

Wise governments pass and enforce laws for the common good. Traffic rules for example, limit how fast a car can go, where a driver can and cannot park, and set standards for licensing qualified drivers. Without traffic laws, cars would race down the road at dangerous speeds, parked vehicles would block roadways, and people who don't know the rules of the road would drive passenger vehicles. But, despite the fact that the Philippines already has a complete set of laws and regulations governing traffic, that seems to be the exact situation on the nations roadways today.

In mature societies, law enforcement is relatively easy. The average citizen obeys the law on his own, and needs only an occasional reminder when he strays off the path. As a result of this self-policing culture, authorities are left free to focus their attention and resources on the few who break the law by choice. The result is a condition of general peace and order. Citizens expect things to work in a certain way, because they know that the law requires it. And more importantly, they find that things do work as expected, because laws are enforced.

Obviously though, the Philippines has not reached the point where laws alone inspire discipline, a word which really means "doing the right thing, even when no one is looking". I’m using traffic to illustrate a point, but the idea is the same whether the subject is traffic, tax collection, or issuing a building permit. Laws not enforced are nothing more than words on paper. Some government officials, again describing Metro Manila traffic, complain about what an impossible challenge it is because "drivers won't cooperate". Here's a piece of advice for those leaders: Filipinos drive the way they do because there is no one stopping them. All the written laws, all the posted signs, and all the penalties, are useless unless a policeman stands in the middle of the street, points directly at a driver, blows his whistle sharply, and says "you cannot do that". If the driver still chooses to break the rule, there must be a consequence -- every time. And if the enforcer won't do the job, he must be replaced -- every time.

So the place we have to start is with the enforcers. And I don't just mean the police.

The Mother of All Problems

In the Philippines, a general failure to enforce laws, regulations, rules, and procedures has created an almost totally “do as you please” environment, which in turn is the root cause of almost every problem this country faces today.

Government will argue that there is a working enforcement system, and that statistics show that the system is successful, but the reality is, the laws that are supposed to keep the country running smoothly, from traffic control to tax collection to simple procedures for handling paperwork, are ignored by citizens and enforcers alike. Whether in the most upscale Metro Manila neighborhood or on the remote island of Jolo, the chaos that passes for peace and order is not a result of uncontrollable elements – but rather a result of UNCONTROLLED elements. The situation is no more complicated than that.

Citizens often choose to obey or ignore a particular law based solely on whether it is convenient or in their interest to do so. The presence of a police officer does not motivate people to obey the law, and in fact, there is a general sense that the authorities are among the worst law-breakers. For the most part, I’m referring to minor crimes and violations, but these infractions, ignored by those who are charged with enforcing order, contribute to a general disrespect for the Rule of Law. Taxis openly refuse to carry passengers, in plain sight of a nearby policeman. Pimps and prostitutes not only solicit customers in plain sight, they often flirt with the cop on the beat while they wait. And of course, police mobile patrols violate every traffic law in the book, with absolutely no regard for the example they are setting. And on the administrative side, all it takes is a friend (or a little money) to get your documents placed on top of the stack at many government offices.

All these things contribute to the “why should I follow the rules” attitude among the general public. Despite government’s strong belief to the contrary, that attitude is not the cause of the country’s problems – it's just a symptom. And as with any illness, the only way to effectively and permanently cure the disease is to treat the cause.

The current administration talks about building a “Strong Republic”. I agree wholeheartedly, but I suggest that we focus our attention first on establishing a “Strong Foundation”. Foundation-level fundamentals, rather than macroeconomics, are where the country is weak. Fundamentals like enforcing the core rules and procedures that make any system work properly. Even a government with no money can dramatically improve the quality of its service, and provide that improved service to more people, by the simple act of enforcing its own laws.

And by “laws” I mean the whole range of rules, procedures, policies, regulations, directives, and all the other words that really just mean “you must do this”. These guidelines exist to ensure order and fair treatment for all. But in the Philippines, as in many underdeveloped countries, we use them as bargaining chips to gain favor or profit.

This one point is the single cause of almost all other problems this country faces. We will dig deeper into this idea as time goes on.