PHILIPPINE PROBATION AND PAROLE SYSTEMS

(Community-Based Rehabilitation of Offenders)

by:
Manuel G. Co, Administrator - Parole and Probation Administration

VISION

A model component of the Philippine Correctional System that shall enhance the quality of
life of its clients through multi-disciplinary programs and resources, an efficient organization,
and a highly professional and committed workforce in order to promote social justice and
development.

MISSION

To rehabilitate probationers, parolees and pardonees and promote their development as

integral persons by utilizing innovative interventions and techniques which respect the
dignity of man and recognize His divine destiny.

THE ADMINISTRATION

The Probation Administration was created by virtue of Presidential Decree No. 968,
“The Probation Law of 1976”, to administer the probation system. Under Executive Order
292, “The Administrative Code of 1987” which was promulgated on November 23, 1989, the
Probation Administration was renamed “Parole and Probation Administration” and given
the added function of supervising prisoners who, after serving part of their sentence in jails
are released on parole or are granted pardon with parole conditions.

Recently, the investigation and supervision of First Time Minor Drug Offenders
placed under suspended sentence (FTMDO) become another added function of the
Administration pursuant to Sections 66, 68 and 81 (b) of RA 9165, “The Comprehensive
Dangerous Drugs Act of 2002” and per Dangerous Drugs Board (DDB) Resolution No. 2 dated
19 July 2005, and the Memorandum of Agreement between DDB and Parole and Probation
Administration, dated 17 August 2005. Further, Executive Order 468 dated October 11,
2005, mandating the revitalization of the Volunteer Probation Aide (VPA) Program, places
the Administration in the forefront in relation to crime prevention, treatment of offenders
in the community-based setting, and in the overall administration of criminal justice.

MANDATE

The Parole and Probation Administration is mandated to conserve and/ or redeem

convicted offenders and prisoners who are under the probation or parole system.

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GOALS

The Administration's program sets to achieve the following goals:

a. Promote the reformation of criminal offenders and reduce the incidence of

recidivism, and;
b. Provide a cheaper alternative to the institutional confinement of first-time
offenders who are likely to respond to individualized, community-based
treatment programs.

FUNCTIONS

To carry out these goals, the Agency through its network of regional and field parole
and probation offices performs the following functions:

a. to administer the parole and probation system;

b. to exercise supervision over parolees, pardonees, probationers, first time minor

drug offenders under suspended sentence and clients rendering community
service;

c. to promote the correction and rehabilitation of criminal offender

Societal Goal Peace and Order

Sectoral Goal Rule of Law

LOGICAL
Organizational Outcome Rehabilitation of offenders in a FRAMEWORK
Community-Based Setting and
Major Final Output Reduction of Crime Incidence

Supervision and
Investigation Services
Rehabilitation Services Administration of
for Petitioners for
for Probationers, Volunteer Probation
Probation, Parole, and
Parolees, and Aide Program
Executive Clemency
Conditional Pardonees

P/A/P Administration of the parole

and probation systems

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 ORGANIZATIONAL PERFORMANCE INDICATOR FRAMEWORK

Societal Goal: Peace and Order

Peace and Order are essential ingredients to maintain economic development, social order
and stability. A condition of peace and order facilitates the growth of investment and
generates opportunities.

Toward this goal, the Administration mobilizes the community in the areas of crime
prevention and rehabilitation of offenders by revitalizing its Volunteer Probation Aide (VPA)
Program. In strengthening its role as a community-based Correctional Pillar, the
Administration plays a crucial role in the prevention of crime, the treatment of offenders
and the overall administration of criminal justice.

Sectoral Goal: Rule of Law

In the implementation of the laws related to probation and parole systems, the
Administration always makes sure that the ends of justice and the best interest of the public
will be served. The offender under probation or parole must substantially comply with the
terms and conditions of the privilege granted him, otherwise he has to suffer the
consequences of his act.

Organizational Goal: Rehabilitation of Offenders in a Community-based Setting and

Reduction of Crime Incidence

In pursuit of the vision statement which says: “A model component of the Philippine
Correctional System that shall enhance the quality of life of its clients through multi-
disciplinary programs and resources, an efficient organization and a highly professional and
committed workforce in order to promote social justice and development”, the
Administration has embarked into the adoption of strategic pathways that include among
others the adoption of an integrated rehabilitation program for its clients that underscores
restorative justice, therapeutic community approach and volunteerism as its major
components. The sustained implementation of this program the Harmonized Rehabilitation
Program (HRP), promotes and strengthens crime prevention and the rehabilitation of
probationers, parolees, pardonees and first-time minor drug offenders on suspended
sentence in the community.

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CY 2012 ACCOMPLISHMENTS

INVESTIGATION (Probation, Pre-Parole/ Exec. Clemency and Suspended Sentence for First-time
Minor Drug Offender)

Probation
 Total Cases Handled 8,810
 Completed/Submitted to Courts 8,052
 Agency’s Disposition Rate 91.40%

Pre-Parole/ Executive Clemency Investigation

 Total Cases Handled 2,115
 Completed/Submitted to Board of Pardons and Parole 1,913
 Agency’s Disposition Rate 90.45%

Total Investigation Caseload 10,925

Investigation Rate of Sustained Recommendation 99.45%

SUPERVISION (Probationers, Parolees, Conditional Pardonees and First-time Minor Drug Offender
on Suspended Sentence)

Probation
 Total Case Handled 29,768
 Terminated 5,431
 Revoked 490
 Other Dropped Cases 1,328

Parole/ Pardon
 Total Cases Handled 14,337
 Released/ Discharged 1,290
 Recommitted/ Arrested 217
 Other Dropped Cases 526

Total Supervision Caseload 44,105

Probation Supervision Rate of Sustained Recommendation 99.89%

Revocation Rate on Probation 1.65%

Recommitment Rate on Parole 1.50%

CLIENTS INVOLVED IN THERAPEUTIC COMMUNITY (TC) MODALITY TREATMENT CATEGORIES

 Behavior Management 28,295
 Emotional and Psychological Aspects 20,364
 Intellectual and Spiritual Aspects 20,165
 Vocational and Survival Skills 15,173

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CLIENTS INVOLVED IN RESTORATIVE JUSTICE (RJ) PROCESSES
 Mediation 1,705
 Conferencing 3,392
 Circle of Support 252

VOLUNTEER PROBATION AIDES (VPAs)

 Appointed VPAs (Since 2003) 11,864
 No. of VPAs with clients 3,691
 No. of clients supervised by VPAs 7,289
 No. of VPA Associations 218

GOVERNMENT SAVINGS Php 230.34 M

Rehabilitation Program and Services for Clients

The Parole and Probation Administration pursue its organizational objective that is the
“rehabilitation of offenders in a community-based setting and the reduction of crime incidence”
which are the anchor of its program and services are statement “as an individualized community-
based three-pronged approach to crime prevention and treatment of offenders with Restorative
Justice as its philosophical foundation, Therapeutic Community as the treatment modality and
Volunteers as lead community resource”.

a. Restorative Justice – Peacemaking Encounter Model

Restorative Justice (RJ) is a philosophy and a process whereby stakeholders in a specific offense
resolve collectively on how to deal with the aftermath of the offense and its implication for the
future to heal the wounds of those affected by the offense: victim, offender, family and the
community.

During the year, the program effected the healing process among victims and clients by way of
dialogue, victim-offender mediation, conferencing, circle of support, restitution, community
work service and other result or outcome as part of the agreement.

No. of clients 1,327

No. of victims 268
No. of RJ process
- Mediation 1,705
- Conferencing 3,392
- Circle of support 252

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 Payment of civil liabilities is one of the outcomes of Restorative Justice (RJ) process. As part of
the client’s rehabilitation program, their compliance with the legal and civil obligations to
indemnify their victims as determined by the courts was enforced by field probation and parole
officers.

Arrangement for Restitution

- Clients who paid 1,115
- Total amount paid / remitted to
victims/ relatives of victims Php 11,201,548.00

To develop a sense of belonging within the community, cooperation, involvement and

responsibility, clients are required to participate in the tree planting activities which include
nurturing of saplings as well as maintenance for survivals. For this year, 303,846 trees of
different species according to a particular topography were planted by 25,327 clients. Likewise,
32,825 clients were mobilized to render services like clean and green, river bed and coastal
clean-up, in their respective neighborhood with end in view of repairing the damage of
relationship with the community.

b. Therapeutic Community (TC) Modality

Therapeutic Community (TC) is a socialized self-help learning treatment modality founded on

such precepts as “responsible love and concern”, “honesty”, “humility”, “forgiveness”, “pride in
quality”, “no free lunch”, and its overall goal is to move clients from “wrong living” to “right
living”.

The program’s major treatment categories or components, namely: Behavior Shaping / Behavior
Management; Emotional / Psychological Aspect; Intellectual / Spiritual and Vocational/ Survival.
The table below shows the number of participants by categories and the activities conducted.

Table 1. Number of Activities and Participants Per TC Treatment Categories

Particulars Behavior Intellectual/ Psychological/ Vocational/

Management Spiritual Emotional Survival
Number of
Activities 11,967 7,793 7,828 4,944
Conducted
Number of
28,295 20,165 20,364 15,173
Participants

For the period in review, all (226) field offices are implementing the Therapeutic Community
modality for clients, involves all (100.00%) of clients who are capable of participating in the
program during their period of supervision.

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 As an outcome of TC treatment modality, clients were referred to government agencies and
private benefactors for following, to wit:

Job Placement - 8,364

Vocational Skills Training - 15,378
Formal Education - 1,135
Adult Education - 3,718

c. Volunteer Probation Aides (VPAs)

One of the factors in strengthening the governance reform initiative of the government is to
heighten and maximize community involvement and participation specifically in the prevention
of crime, treatment of offenders and criminal justice administration.. It is on this light that
Presidential Decree 968, otherwise known as the Probation Law of 1976, authorizes the
appointment of citizens of good refute and probity to act as volunteer probation aides (VPAs) to
help in the community-based program of the Agency. This was later enhanced by the
implementation of Executive Order No. 468 which revitalizes the VPA program through the
financial and technical assistance to Japan International Cooperation Agency. Several In-Country
Training Programs on community based treatment of offenders was held in cooperation with
UNAFEI and JICA. The revitalization spawned the establishment of a national umbrella
organization, Alliance of Volunteers for Peace Advocates of the Philippines (AVPAP) and 218
local associations for an effective promotion, utilization and sustainability of the program. To
date there are 11,851 appointed VPAs whose appointment duly noted by the Secretary of
Justice.

Table 1. Number of Volunteers Appointed , Trained and Deployed

2003 2004 2005 2006 2007 2008 2009 2010 2011 2012
Number of 252 427 1,346 3,672 5,974 7,735 9,963 12,369 13,889 11,851
VPA
Number of
VPA 405 1,214 2,301 4,092 5,219 5,725 6,909 7,703 7,819
Trained
Number of
VPA 473 1,417 2,619 4,095 4,940 3,693 4,512 5,374 3,515
Deployed

Table 2. Other Services Rendered by Volunteer Probation Aides

Particulars Number
Services Rendered by VPAs in Office Initiated Activities 8,315
Resources Tapped by VPA 2,531
Services / Assistance Rendered by VPA 2,957
VPA as Resource Individuals 1,263

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d. Government Savings

The Philippine probation and parole systems is mandated to “provide a less costly alternative to
the imprisonment of offenders”. For CY 2012 the government should have spent
Php576,781,427.00 to 44,105 probationers, parolees and pardonees. However, through
probation Php230,340,072 was saved by the national government excluding expenses for the
construction of additional prison facilities, additional number of guards among others.

e. Jail Decongestion

Pursuant to the Memorandum of Agreement entered into by this Administration to Board of

Pardons and Parole, Bureau of Jail Management and penology, Public Attorney’s Office and
National Prosecution Services, the Probation and Parole Officers nationwide conducts regular
jail visits, interview detainees and referrals them for legal assistance to avail the benefits
probation, parole and other forms of executive clemency. To date 10,462 detainees were
assisted for probation or executive clemency and 14,367 were referred / facilitated for various
reasons.

f. Resource Generation

Through linkages, information dissemination and participation in local and national programs
the Administration through its local office, mustered enough support to warrant financial
assistance from the national and local government units, business groups, civil society
organization, religious sector, non-government organizations. To disseminate the benefits of
community-based rehabilitation program for offenders was a joint undertaking of field officers
and Volunteer Probation Aides. Assistance were in the form of financial (Php 1,427,917.00);
material such office supplies, use of vehicles, venue, medicine, food and snacks etc. (PhP
655,783.00) and technical support like resource person, doctors etc. (PhP1,247,550)

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 TARGETS AND THRUSTS

I. Targets for CY 2013

1. Investigation of petitions for probation, parole, Executive Clemency and suspended sentence
for first time minor drug offenders.

 90% of the total number of investigation referrals disposed within 60 days from the
receipt of the order
 90% of recommendations of investigating officers sustain by the courts

2. Supervision of probationers, parolees, pardonees and first time minor drug offenders.

 90% of probationers, parolees, pardonees and first time minor drug offenders
supervise
 100% of recommendations of supervising officers sustain by the courts/ BPP
 100% of cases due for termination to act upon
 88% of clients participation in the Therapeutic Community Modality

Restorative Justice

 80% of clients involvement in community service, tree planting, etc

 25% of clients will partially pay their civil liability

Therapeutic Community Modality

 80% sustained implementation of realigned TC program

 85% of client’s family involved / supported the program
 At least 3 organized Family Support Group per region

3. Administration of Volunteer Probation Aide (VPA) Program

 12,500 Volunteer Probation Aides (VPAs) to appoint

 8,774 Volunteer Probation Aides to train
 4,974 VPAs to deploy as supervising officers of clients

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 PROGRAM THRUST

2011-2016
Strategy/ Program/ Project/ Activity

1. Good Governance in the system

a. Continuously Professionalize the Department’s bureaucracy

- Recruitment and Selection based on merit and fitness
- Review and improvement of recruitment, selection and promotion procedures

b. Continuously Implement good governance reforms (Good governance index)

1. Zero backlog policy

- Policy and procedures in place, resulting in minimal/ reduced backlog

2. Integrity Development Review (IDR)

- Institutionalize integrity development mechanism

3. Rationalization Plan (RatPlan)

- Implementation of the Agency’s Rationalization Plan

4. Anti-Red Tape Act (ARTA)

- Enhancement of feedback mechanisms

5. Performance Management Systems

- Implementation of employees Performance Evaluation System - performance
contract approach

6. Resource management
- Institutionalize planning, programming and budgeting system

7. Information Systems Strategic Plan

- Updating of existing ISSP

8. Integrated communication plans

- Development and institutionalization of an integrated communication plan

9. ISO compliance and certification

- Conduct Agency –wide capacity development on government quality management
system

10. Feedback, monitoring and evaluation

- Review and enhancement of feedback mechanisms

c. Institute measures to combat graft and corruption

- Unified integrity development programs

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2. Enhance the detection and investigation of crimes/ offenses, and prosecution and rehabilitation
of offenders

a. Improve prison management and offender rehabilitation

- Reactivate the program and reestablish collaboration among agencies, civil society and
business sector

b. Enhance rehabilitation programs for parolees, probationers, pardonees and first time minor
drug offenders
- Integration and institutionalization of PPA rehabilitation program

c. Strengthen the Volunteer Probation Aide (VPA) Program

- Promotion of VPA associations/ organizations and implementation of quality
recruitment in terms of proximity of VPAs with clients

d. Amendment of the PPA charter

- Provide inputs and support enactment

3. Ensure adequate, accessible, fair, stable and predictable legal framework and services

a. Increase service capability through adequate resources

- Provision of adequate transportation equipment to support operations

4. Strengthen and integrate capacity building and justice policy development

- Institute measures to ensure uniformity/ consistency of policies and legal services

5. Improve systems and processes through information and communication technology

- ICT projects for internal management and operations

- Enhance the nationwide website and e-mail system

6. Increase access to justice especially by the poor and vulnerable groups

- Ensure sensitivity and responsiveness of justice policies, systems, processes and services to
vulnerable groups (e.g. women, children indigenous peoples, persons with disability)

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