PNP Crime Reporting Guidelines

Legal basis and referenced issuances

Executive Order No. 386 provides the basis for establishing a National Crime Information System.
NAPOLCOM Resolution No. 92-39 adopts a new crime reporting format for the “Law Enforcement Pillar.”
Republic Act No. 6975 is cited as a legal reference for the PNP context.
The instruction references PNP Instructions.
The Local Government Code of 1991 is cited as a reference, including its interaction with barangay settlement rules.
NAPOLCOM Memorandum Circular 94-017 is cited for the rules on when a case is considered solved.
PGMA Instructions on March 11, 2009 are referenced.

Policy purpose and operational intent

The guidelines require consistent and accurate recording of crime incidence through a uniform procedure for reporting and collecting crime data by the Philippine National Police.
Crime data include cases reported to other law enforcement agencies involved in the Criminal Justice System.
The collected and recorded data are used as a working basis for policies and programs on various anti-criminality measures.
The guidelines aim to address gaps so that PNP can produce accurate statistical crime data for administrative and operational decisions.
The guidelines require data to be suitable for planning and analysis of crime trends and patterns in the country.

Key definitions and formulas

Crimes include felonies that violate the Revised Penal Code and offenses that violate special laws.
Crime Volume is the number of crime incidents in a given area over a period of time, including index and non-index crimes, computed as:
- CV = Index Crimes + Non-Index Crimes
Population is the number of inhabitants in the given area, using the medium assumption from National Statistics Office (NSO) records.
Crime Rate is the number of crime incidents in a given period for every 100,000 inhabitants, computed as:
- Crime rate = Crime Volume / (Population/100,000)
Index Crimes are serious crimes that occur with sufficient frequency and regularity to serve as an index to the crime situation, and the index crimes used are:
- murder, homicide, physical injury (serious and less serious), carnapping, cattle rustling, robbery, theft, and rape
Solved Cases follow NAPOLCOM M.C. No. 94-017, including:
- A case is solved when the offender has been identified, there is sufficient evidence to charge, the offender has been taken into custody, and the offender has been charged before the prosecutor’s office or a court of appropriate jurisdiction.
- A case is also solved when elements beyond police control prevent arrest, including where the victim refuses to prosecute after identification, or the offender dies, or absconds.
- The arrest of one offender can solve several crimes, or several offenders may be arrested in the process of solving one crime.
Crime Solution Efficiency (CSE) is computed as:
- CSE = (Solved Cases / Crime Volume) x 100%
Cleared Case is established when at least one offender is identified, there is sufficient evidence to charge, and the offender has been charged before the prosecutor’s office or any other court of appropriate jurisdiction, and it includes solved cases.
Crime Clearance Efficiency (CCE) is computed as:
- CCE = (Cleared Cases / Crime Volume) x 100%
- Where CC = Cleared Cases, CV = Crime Volume, and CCE = Case Clearance Efficiency.

Recording obligations and jurisdiction rules

Line units must gather, collate, and record all crime-related incidents to establish an accurate and timely local picture of what is happening.
The Police Blotter serves as the main source of crime data for submission and is the basis for preparing the Unit Periodic Report and NCRS Form 1.
Crime data from other stakeholders and law enforcement agencies must be recorded into the Police Blotter.
Future incidents and crime recording systems must be integrated or linked to facilitate tracking and audit between systems.
The Chief of Police must ensure crime data are gathered from sources including Barangay, NBI, PDEA, BFAR, DENR, DSWD, BUCUS, BI, and other agencies with law enforcement functions in the locality.
The Unit Commanders must appoint a Crime Register responsible for consolidating and maintaining each unit’s crime data files to ensure consistency and continuity.
The Chief of Police is primarily responsible for maintaining accurate crime data, while accuracy and integrity are ensured by the Chief of Investigation Section and the Crime Registrar.
The police unit with territorial jurisdiction where the crime was committed has primary responsibility to record and report the same.
When a continuing crime is committed in various areas of responsibility, it must be recorded and reported as a single crime by the unit taking cognizance.
Crime incidents must be recorded in the police blotter even when the offender is ill and unlikely to recover, too senile, or too mentally disturbed for proceedings; when the complainant or essential witness is dead and proceedings cannot be pursued; when the victim/essential witness refuses, or is permanently unable to stand as a witness; and when the victim or complainant or witness are minors.

Counting rules for offense statistics

Murder (Article 248, RPC) includes cases consummated only.
Infanticide (Article 255, RPC) and Parricide (Article 246 RPC) are counted as murder cases.
Killings perpetrated by insurgents and/or terrorists must be included.
Attempted and frustrated cases of murder, infanticide, and parricide are counted as physical injury cases if the victim(s) was injured; otherwise, they are counted as non-index crimes.
Homicide (Article 249, RPC) counts consummated only.
Attempted and frustrated homicide resulting in injuries must be counted as physical injury cases; otherwise, they are counted as non-index crimes.
Serious and less serious physical injuries (Articles 263, 264 and 265, RPC) include actual physical injury cases and incidents perpetrated by/or involving insurgents/terrorists that resulted in wounding of the victim(s).
Robbery (Article 293, RPC) counts consummated robbery cases and robbery in band.
Carnapping (RA No. 6539) records consummated carnapping cases only.
Cattle rustling (PD No. 533) records consummated cases only.
Theft (Article 308, RPC) counts consummated theft cases only.
Rape (Article 335, RPC and RA 8353) includes consummated and statutory rapes.
Suicide is not counted as a crime.
For compound and complex crimes, only the most serious offense is counted (the principal crime rule).
A reported incident must be counted as a crime only after validation by the investigation officer that it constitutes an incident constituting a crime.
Infractions involving violations of provincial/city/municipal and barangay ordinances are not counted as crimes for the prescribed crime counting.
Violations of the Revised Penal Code and special laws that are to be settled at the Barangay (under PD 1508 as amended by Local Government Code of 1991, and Supreme Court Administrative Circular No. 14-93) must be recorded separately.
Crime incidents under RA 9344 (Juvenile Justice Act) with absolute confidentiality of parties and documents must be recorded, and DSWD data must be collated.
The Traffic Investigation Section/Division assumes responsibility in recording traffic offenses arising from violations of traffic rules and regulations and submits them to the Crime Registrar for integration in crime statistics.

Reporting timetable and submission locations

City/Municipal Police Stations (CPS/MPS) submit the Unit Crime Periodic Report (UCPER - CPS/MPS) to the PPO/NCR District every month.
CPS/MPS must accomplish the List of Crime Incidents Referred/Processed by Reporting PNP Unit/Office on a daily basis (Tab A).
The daily list must be tabulated/consolidated to accomplish the Statistics on Crime Incidents (Tab B) included in the monthly UCPER.
Crime incident records from other agencies including DSWD, DILG (Brgy Cases), Traffic Office, and other law enforcement agencies are collected monthly and incorporated in the summary of incidents forming part of the Unit Crime Periodic Report.
The report submitted to the PPO/NCR District must include signatures of the Unit Crime Registrar, the Unit Investigation Chief, and the Chief of City/Municipal Police Station.
Police Provincial Offices/NCR Districts/City Police Offices submit the UCPER - PPOs/NCR Districts/CPO to the Police Regional Office monthly.
The Police Provincial Office/NCR District/City Police Office consolidates Statistics on Crime Incidents from all City/Municipal Police Stations under its AOR.
The Police Provincial Office/NCR District/City Police Office must submit to the Police Regional Office the consolidated report containing data from all units under its jurisdiction and crime data gathered from agencies including PDEA, NBI, LTO, BFAR, DENR, BOC, and other law enforcement agencies with locality functions (Tab C).
The report submitted by the Police Provincial Office/NCR District/City Police Office must include signatures of the Unit Crime Registrar, Unit Investigation Chief, and Provincial/NCR District/City Director.
Police Regional Offices (PROs) submit UCPER - PRO to DIDM on a monthly basis.
The PRO report must be in hard and soft copies and must bear signatures of the Unit Crime Registrar, the Chief, RIDMD, and the Regional Director.
Concerned National Support Units (NSUs) submit UCPER-NSU to DIDM every month, in hard and soft copies, signed by the Unit Crime Registrar, the AD for Investigation, and the Unit Director.
The submission dates are:
- 1st day of every month: CPS/MPS to PPO/NCR District
- 3rd day of every month: PPO/NCR District/CPO to PRO
- 5th day of every month: PRO/NSU to DIDM

Tasking of PNP offices and roles

DIDM assumes directorial staff responsibility for efficient and effective implementation of the guidelines.
DIDM evaluates crime reporting performance of unit commanders and institutes measures to ensure religious compliance.
DIDM collects and interprets crime data and prepares periodic assessments of crimes for command and other law enforcement agencies concerned.
Directorate for Operations (DO) coordinates/liaises with other law enforcement agencies (NALECC) to make available crime incidents to police units that have come to their attention or have initiated operations.
DO assists in implementation of the guidelines.
Directorate for Comptrollership (DC) provides financial support for smooth implementation.
Directorate for Police Community Relations (DPCR) disseminates the policy guidelines to stakeholders and establishes rapport with stakeholders for cooperation in submitting required crime data.
Regional Directors (thru RIDMDs) compile UCPERs of provincial/NCR district/city offices and conduct regional-level crime trend analysis.
Regional Directors (thru RIDMDs) liaise with DIDM on crime data required at the regional level and monitor compliance of lower units.
Regional Directors (thru RIDMDs) ensure submitted reports reflect the actual, accurate, and true crime situation in their AOR.
Regional Directors (thru RIDMDs) designate a Crime Registrar to maintain and consolidate UCPER from lower units and other enforcement agencies operating at the regional level.
Provincial/NCR District/City Directors (Thru PIDMBs/DIDMBs) collect and compile data from city/municipal stations and conduct crime trend analysis at the provincial/district/city level.
Provincial/NCR District/City Directors (Thru PIDMBs/DIDMBs) liaise with RIDMDs for crime data required at their levels, ensure reports reflect the actual, accurate, and true crime situation, and designate a Crime Registrar for maintenance and consolidation at their level.
Provincial/NCR District/City Directors (Thru PIDMBs/DIDMBs) monitor compliance of lower units.
Chiefs of Police/NCR Station Commanders accomplish the Unit Crime Periodic Report in accordance with attached forms, and recapitulate data including DSWD (RA 7610 and RA 9144), DENR, DILG (Crimes referred/resolved by the Barangay), BFAR, PDEA, Traffic Section, and Others such as NBI, BI, BUCUS, Coast Guard, OMB.
Chiefs of Police/NCR Station Commanders gather relevant data from other agencies operating in their AOR.
Chiefs of Police/NCR Station Commanders ensure that Duty Desk Officers submit the Daily List of Crime Incidents referred/processed containing all incidents recorded in the Police Blotter to the Station Crime Registrar (Tab A).
Chiefs of Police/NCR Station Commanders designate a Crime Registrar responsible for maintaining and consolidating crime data at the city/municipal level.
Chiefs of Police/NCR Station Commanders certify the correctness and accuracy of the Unit Crime Periodic Report and data contained therein.
The Crime Registrar maintains files of all crime data including data from other agencies in the area of responsibility and exercises confidentiality and integrity in handling and storage.
The Crime Registrar ensures proper turnover of data and documents, prepares accurate periodic statistical and graphical interpretation of crime data, consolidates the accomplished daily list submitted by the Duty Desk Officer, and certifies correctness and accuracy of the Unit Crime Periodic Report data.
The reporting and submission system proceeds through the required flow of reports contained in Annex “aAa”.

Administrative sanctions and consequences

Immediate supervisors and/or heads of offices who fail or refuse to take action on the prescribed guidelines are liable for NEGLECT OF DUTY in accordance with NAPOLCOM Memorandum Circular 2007-001.
Deliberate or intentional manipulation of data—such as under counting, false entry, or any act that does not reflect the accurate or true crime situation—constitutes SERIOUS IRREGULARITY IN THE PERFORMANCE OF DUTY under NAPOLCOM Memorandum Circular 2007-001.