March 2015TABLE OF CONTENTS EXECUTIVE SUMMARY CHAPTER | The PNP Board of Inquiry ‘A. Creation and Organization 8. Objectives C. Framework and Methodology 1. Conceptual Framework 2. Operational Framework 3. Methodology en Data Collection D. Limitations of the Report CHAPTER II Facts of the Case ‘A, Background 1. The Milieu 2. The High Value Targets 3. The Mamasapano Encounter 4, Calls for Ceasefire 5. The Fallout B, Oplan Exodus 1. The ‘Genesis’ of Opian Exodus 2. From Oplan Terminator to Oplan Exodus C. Briefing at Malacafiang D. The Death of a Terrorist E, The Mamasapano Encounter 1, Seabome's Plight 2, ‘The 55" SAC and The 'Pintakas? 3. Communication with the President 4. Coordination with the PNP Command Group and Quad Staff 5. First Notice of Oplan Exodus to O1C-PNP 6. First Notice of Oplan Exodus to SILG F. Calls for Reinforcement . 1. Request for Artillery Support 2. Mobilizing Reinforcements 3. Insurgent Strongholds 4. Heightened Cail for Alert 5. AFP in Anticipation of Escalated Hostilities err6. AFP's Account of Support G. Efforts to Effect Ceasefire H. Retrieval Operations The Lone Survivor |. Post-Operations 1. PNP Crime Laboratory Report 2. Retum of SAF Firearms J, United States Involvement CHAPTER til - Discussions and Analyses A, Chain of Command a8 S88 Participation of a Suspended CPNP 8, Command Responsibility 1. The Director of SAF 2. The Suspended CPNP 3. The SILG and OIC-PNP 4. The Prosident as the Gommander-in-Chief 5. Implications af Optan Exodus on the Peace Agreement ©. Coordination 1, Between the GRP and the MILF Forces 2. Among 6ID-PA, AHJAG, and CGCH 3. Time-on-Targe! Concept (TOT) 4. Levels of Coordination 5. Mode of Coordination 6. Allocation af Tasks D, Operation Plan Exodus 1. Mission Planning 2. Approval and Go-Signal 3, Change in Operational Conditions 4. Contingency Plan E. Execution 1. Troop Preparation and Movament to the Staging Area 2. The 84" SAC (Seaboma) 3. The 55" SAC ‘ F, Command and Control G. Logistics 1. Communication 46 46 48 51 52 532. Firepower 3, Budget H. PNP and AFP Responses. 1. SAF Containment and Blocking Forces 2. 6ID-PA Response |. United States" Involvement 1. Background 2. Rola in Oplan Exodus J. Efforts of the Peace Process Mechanisms K. Autopsy Report CHAPTER Iv Conclusions CHAPTER V Recommendations GLOSSARY OF ACRONYMS: KEY PERSONALITIES ANNEXES 81 87 a 93 99al J J d d dl q | 4 4 dl = ae lh CU — EXECUTIVE SUMMARY ‘On January 25, 2015, sixty-seven (67) Filipinos died in Mamasapano, Maguindanao as a result of an encounter triggered by Operation Plan (Oplan) Exodus, The goal of Oplan Exodus was to neutralize high value targets (HVTs) who were international terrorists—Le., Zhulkiffi Bin Hit/Zulkifli Abhir (Marwan); Ahmad Akmad Batabol Usman (Usman); and Amin Baco (Jihad). Forty-four (44) members of the Special Action Force (SAF}—cansidered as the elite unit of the Philippine National Police (PNP) against terrorism and intemal security threats—tost thelr lives in Mamasapano, while sixteen (16) other ‘SAF members sustained severe injuries. The tragic incident In Mamasapano raised several quastions. How could a group of elite forces be massacred? Who was responsible for thelr deaths? ‘What caused the tragic encounter in Mamasapano? Who were the hostile forces ‘encountered by the SAF troops? The Board of Inquiry (BON) was created by the Philippine National Police (PNP) primarily to investigate the tacts and circumstances surrounding the Mamasapano encounter, to establish facts regarding Oplan Exodus, to determine possible lapses in the planning and execution of Oplan Exodus, and to provide recommendations in order to address such possible lapses, The methodology used by the BO! in preparing this Report is described in ‘Chapter 1, : The BOI notes that information obtained from cartain key porsonalities were limited. For Instance, the BOI failed to secure an Interview with the President Benigno Aquino ll, suspended Chiel PNP (CPNP) Alan Purisima, Chiat-of-Staff AFP (CSAFP) General Gregorio Catapang, and Lieutenant General Rustico Guerrero, All concemed officers of the Armed Forces of the Philippines (AFP) refused to be interviewed by the BO! despite repeated requests. The BOI did not have access to other crucial information such as contents of Short Messaging System (SMS) or text messages, and logs of calls and SMS, BO!'s requests for the submission of cellular phones for forensic examination were alse denied by GSAFP Catapang, Guerrero, suspanded CPNP Purisima and AFP officers. However, the sworn statement of suspended GPNP Purisima 4 peraincluded a transcript of his SMS exchanges with the President on January 25, 2018. Despite the foregoing limitations, the BO! succeeded in condueting several Interviews, obtaining various types of evidence, processing and reviewing hundreds of documents, and conducting ocular inspection in Mamasapano to produce this Report. Based on the records, Oplan Exodus was approved by the President and implemented by suspended CPNP Purisima and tha Director of SAF (Napefias) Getulio Napefias, to the exclusion of the Officsr-in-Charge of the Philippine National Police (OIG PNP) Leonardo Espina, who Is the concurrent Deputy CPNP for Operations- Gn December 16, 2014, the OIC-PNP issued Special Order No. 9851 which directed suspended CPNP Purisima and other suspended PNP officers, to “cease and desist from performing the duties and functions of their respective offices during the pendancy of [their respective cases filed by the Ombudsman) until its termination,” Napefias and suspended CPNP Purisima ignored the established PNP Chain of Command by excluding OIC-PNP Espina in the planning and execution Oplan Exodus, Napefias and suspended GPNP also failed to inform the ‘Secretary of the Interior and Local Government (SILG) Mar Rexas shout Oplan Exodus, and made no prior coordination with the AFP, Based on the records, SILG and OIC-PNP were informed of Opian Exodus only in the morning of January 25, 2018 when such operation was already being executed. OIC-PNP was first informed about Oplan Exodus through a phone call by suspended CPNP Purisima al 05:50 a.m. on January 25, 2015. SILG learned about the operation when he got an SMS from Police Director Charles Callma Jr. at 07:43 a.m. on January 25, 2015. The participation of the suspended CPNP in Opian Exodus was cartied ‘out with the knowledge of the President. Records revealed instances when tha suspended CPNP met with the President and Napefias to discuss Oplan Exodus; and communicated with the President via SMS messages regarding tha execution of Oplan Exodus on January 25, 2015. Records also show that suspended CPNP Purlsima falied to deliver his assurances to coordinate with the AFP. At a crucial stage of the crisis, the suspended GPNP Purisima provided inaccurate information from an unofficial source, which further jeopardized the situation of the 55" SAC and ad!” Seabore in Mamasapano, ‘There are indications that Napefias may not have considered differing opinions raised by his subordinate commanders. The mission Planning appears ime mee SOE SEO ee =a = lUmelUlUme to have been done by @ group of officers and not by a planning team, with inputs heavily influanced by Napefias. Subordinate commanders expressed that Napefias had unrealistic planhing assumptions such as the swift delivery of artilery fire and the immediate facilitation af ceasefire, Napefias chose to employ a “way-infway-out, by foot and rightonly” infitration and exfitration Concept of Operation (CONOPS) for Oplan Exodus, Ouring an interview with BOl, Napefias admitted that ha expected casualty of around tan (10) SAF Commandos ta accomplish the mission Napofias also admitted that key variables for the success of Oplan Exodus, such as the coordination with the Shah Intantry Division (61D), and with tha Coordinating Committee on the Cessation of Hosilliles (GCCH) and Ad Hoc Joint Action Group (AHJAG) were not thoroughly considered in the mission Planning. The established protocols and Standard ‘Operating Procedures (SOPs) ‘of the AFP, COCH and AHJAG in providing reinforcement and effecting ceasefire were not sufficiently discussed. Napefias proposed to the President the adoption of the “Time-On-Target” (TOT) concept of coordination for Optan Exodus. Application of the TOT concept restricted disclosure of information to a limited number of persons until the target |S engaged. il appears that Napefias' primary consideration for adopting the TOT. Concept was aperational security (OPSEC) to reduce the risk of having Oplan Exodus compromised, ‘The records show that when the President gave instructions to CPNP Purisima. and Napefias to coordinate with the AFP, Napefias raised his concer that the AFP might be compromised due to intermarfiages of some AFP personnel with ‘the local people. He cited previous SAF ‘perations against the same HVTs that Were coordinated with the AFP, Suspended CPNP Purisima and Mendez shared the qualms of Napenias. When Napefias proposed to the President the adoption of the TOT concept for Oplan Exodus, the President remained silent. Police Superintendent Raymund Train of the 84" SAC (one of the survivors from the Mamasapano ‘eneoutner) attested that, in case of heavy enemy fire, the first planned mitigating action for Oplan Exodus was indirect artilery fire support from the AFP. The second planned mitigating action was the commissioning of the peace process machanisms to facilitate coasatire, However, Napefias failed to consider the consequences of the TOT Concept vis-a-vis the required mitigating actions. He appeared to have relied heavily en the verbal commitment of the suspanded GPNP Purisima to arrange ‘forthe needed AFP support, Coordination with the 6ID and CCCH and AHJAG AX fi havea PreeCaaS ee oe eae eae Pe was planned to be made at TOT, that was, upon engagement of the target. ‘There was no pian for close air support, ‘With respect to the peace process mechanisms as mitigating actions in Oplan Exodus, the required coordination to trigger such mechanisms (such as a ceasefire) were not followed. Prior communication with Brigadiar General Cariilo Galvez could have informed Napefias that, in past exporionces, a ceasefire could only be achieved after at least six (6) hours of negotiation. By the time the AFP was informed about Oplan Exodus, a hostile encounter between the SAF Commandos and various armed groups in Mamasapano had already ensued, Considering that tha CONOPS attopted the way-inway-out-infway- that the CONOPS adopted heavy suppert {rom other SAF Commandos ta secure the withdrawal route of the Main Effort (Seaborne). The plan was for the 84" Seabome to link-up with $5" SAC and progressively with 4SAB. units along the withdrawal route. The delay in the movement of the Seabome affected the movernent of the 4SAB and other reserve forces. When the containment and reserve forces arrived at the Vehicle Drop-off Point (VOOP), the situation In the area ot operation was already hostile. Heavy sound of gunfire were heard coming from the location of the 55" SAG. The troops immediately disambarked, organized themselves and rushed to thelt designed waypoints (WP). Midway between WP@ and WPS, the reinforcing troops cama, under heavy enemy fire, The exfiltration route became dominated by hostile forces. The Ground Commander at the Advance Command Post (ACP) was not able to maneuver the troops to break enemy lines and force their way to reinforce the 55° S&C Commandos Near WP12, ineffective communication system further exacerbated the situation, During the site survey in Mamasapano on February 24, 2045, the BO! tk noie of the unfavorable terrain faced by the reinforcing troops. ‘The wide terrain between thelr location and that of the 56" SAC was literally flat without adequate cover and concealment. Tactical manauvers, such as the “Bounding Overwatet technique, would have been difficult and may result io more casualties. According to the pialean leaders, enemy fires were coming from all directions which prevented them from maneuvering and reinforcing 55" SAC. Im a joint interview with BOl, Mayor Ampatuan ct Mamasapano and the Barangay Chairman and Officidls of Tukanalipao in Mamasapano claimed that in the past, armed elements would readily withdrew from the encounter site fe Pa oHoiuduiadeda a Se eS ee dasa; OO whenever white phosphorous rounds were delivered by the Field Artillery Battery of the 6ID PA. In an interview with BO!, Napefias claimed that the 61D immediately Provided artillery fia support when one of its infantry company was harassed by armed elements sometime in lale November or early December 2014, However, during the execution of Opian Exodus, three (3) white Phosphorous rounds were delivered late in the afternoon and not earlier in the moming when such rounds could have mattered most to the 84" Seabome and the 55" SAC, SAF coordinated and requested for indirect artillery fire support from the ‘st Mechanized Brigade as early as 07:30 a.m. The Brigade Commandar of the jst Mech Brigade, Colonel Gener Del Rosario sought clearance for artilery fire from the 61D Commander, Major General Edmundo Panglinan. However, of the vee recommendations given by Col. Del Rosario, only the dispatches of infantry Support and mechanized suppor were approved by MGEN Pangilinan. The request for indirect artillery fire was put on hold since, according ta Pangilinan, they stil lacked details as mandaled by their protocol, Based on the records, MGEN Pangilinan took it upan himself to withhold ariliery ‘ire support In consideration of the peace process and artilary {ire protocols. However, pursuant to AAA, PA SOP No. 4, that decision could have been made by a Brigada Commander like Col. del Rosario, ‘The primary objective of Oplan Exodus to get the HVTs was not fully completed. Two of its targets, Jihad and Usman, were able to escape and remain attarge. ‘Three hundred ninety-two (392) SAF Commandos were mobilized for Oplan Exodus, Forly-lour (44) SAF members lost their lives in carrying out this mission, in discovering the facts that jead to such deaths, this Report stresses the Importance of command responsiblity: “A commander is responsible for what his unit does or fails ta do." Findings: 1. Chain of Command The Chain of Command’in the PNP was viglated. The President, the Sispended CPNP Purisima and the former Director SAF Nepefas kop! the information to themselves. and deliberataly failed to inform the OIG PNP and. the perf eCeee ehh Uh Ul Ud Uh OU llr Uk CU Ok SILG. The Chain of Command should be observed in running. mission ‘operations, For instance, the Manual for PNP Fundamental Doctrine', requires the Commander to discharge his responsibilities through a Chain of Command, Such Manual provides that it fs “only in urgent situations when intermediate commanders may be bypassed, In such instances, intermediate commanders should be notified of the context of the order as soon as possible by both the commander issuing the order and the commander recalving it.” With respect to Optan Exodus, the Chain of Command in the PNP shouk have been: OIC, CPNP PDDG Espina (as senior commander) to Napafias (as intermediate commander). POG Purisima could not legally form part of the Chain of Command by reason of his suspension, 2, Command Rlesponstotity The principle of Command Flesponsibility demands that a commander is Tesponsible for all that his unit does oF fails to do. Command Respansibilty ‘cannot be delegated or passed-on to other officers. Under the Manual far PNP Fundamental Doctrina, Command Responsibilty “can never be delegated olherwise it would constitute an abdication of his role as. a commander, He alone answers for the success or failure of his command in all circumstances," Gased on the records, Napefias admitied that he had command responsibility with respect to Oplan Exadus, 3. Coordination ‘The TOT coordination soncept, which limits the disclosure of information ‘a only @ few personnel, is applicable only to ordinary police operations. This ‘concept however does not conform to the established and acceptable operational concepts and protocols of the PNP. Even AFP commanders asserted that the TOT concept is alien to the Armed Forces and runs counter to their established SOPs. Without coordination, following the AFP ‘definition, support to operating units such as artillery or close air Support is not possible since these entails preparations, 4. Operation Pian Oplan Exodus was not approved by the OIC-PNP. Napefias dominated the mission planning, disregarding inputs fram his subordinate commanders on how the operation will be conducted. The concept of the way-infway-out, by foot, " PNPNL-D-01213 DHRDD October 2013 Revised Eettton “Ey poate wi igand night-enly infiltration and extittration in an enemy controlled community with unrealistic assumptions was a high-risk type of operation. 5, Execution ‘Oplan Exodus can never be executed effectively because It was defective fram the very beginning. Troop movement was mismanaged, troops fallod to occupy their positions, there was lack of effective communication among the operating troops, cammand and contral was ineffective and foremost, there was NO coordination with the AFP forces and peace mechanism entities (CCCH and AHJAG). 6, Command and Control Command and contro! is critical to a coordinated and Collaborative response to the Mamasapano incident. In Oplan Exodus, the SAF's TCP and ACP were plagued by failures of command and control {rom the very start especially In the “aspect of communication. As Oplan Exodus unokded, mobile communication devices was used as a primary mode of ‘Sommunicalion. However, these devices fell short af whal were neaded to ralay reaktime information and coordination of activities to and from the chain of ‘command, Radio Operators ware assigned at the TCP one each for 84" Seabome ‘and 55" SAC, However, 55" SAC and 84" Soabeme ost contact during the crucial moments of executing Oplan Exodus. They had to rely on distinctive guntire 10 approximate each other's location. Radio net diagram was provided buttaited when radio equipment bogged down, 7. Logistics Some of the ordnance for M203 were defective, Although there were Sufficient rounds of ammunition for each operating troop, the ‘overwhelming Strength of the enemy caused the troops to run out of ammunition. The common Molorola handheld radios failed whan submerged in water because these were not designed for military-type of operations. The battery life was short because of weer and tear, 8. AFP Response Artillery fire support was factored in as one of the mitigating actions of the SAP. However, such Support was not delivered when neadad. In consideration of the peace process, AFP did not deliver the artilry fire support under the Conskteration af the peace process, and on tha absence of compliance with the boo 5"abo mh Gf bh Gk Rk ff Gk Oe Ok OOO Ue required protocol. AFP demanded prior cocrdination to enable them to react and deliver the requested support. Nonetheless, tha AFP sent Infantry and mechanized units to reinforce the SAF. White phospharus artiliary rounds were fired late in the aftemeon. However, by then, all of the 58" SAC lay dead except for one who was able to escape. Local PNP units were not fully utilized to reinforce the SAF. The reinforcement from the lacal and Regional PNP units were not seriously factored- in during the mission planning process, 9. Peace Process Mechanisms: Officials of the CCCH and AHJAG, when tapped by AFP, did thelr best to rainstata the ceasefire between the SAF and MILF combatants, The participation of other armed groups such as the Bangsamoro Islamic Freedom Fighters (BIFF), private armed groups (PAGs), and other armed civilians in the firefight dolayed the ceasefire. 40. United States (US) Involvement ‘The U.S. was Involved in the Intelligence operations and medical evacuations. No US personneltroops were involved in the actual combet operation. The US supported the operation by providing technical support to enhance monitoring of the troops on the ground. They were also involved in the identification of Marwan through DNA analysis. 41, Post-Mission Actions The report submitted by the PNP Crime Laboratory shows thal around four (4) SAF commandos with fatal gunshot wounds (GSWs) to the head and at the mid-portion of the trunk were deathblows delivered by shooting at close- range. in other words, not all the forty-four (44) fatalities died during the actual firafight, but were literally executed at close-range by the enemy. A total of 16 SAF firearms and one (1) cellphone were retumed by the MILF. It was observed that some parts of the retumed firearms had been replaced, ‘CONCLUSIONS: Based on the foregoing, the follawing conclusions were drawn: here fee “Ei1. The President gave the go-signal and allowed the execution of Oplan Exodus after the concept of operations (CONOPS) was presented to him by Director of Special Action Force (SAF) Police Director Getulio lapefias. 2 The President allowed the participation of the suspended Chiet Philippine National Police (CPNP) Police Director General Alan Purisima in the Planning and execution of the Oplan Exodus despite the suspension order of the Ombudsman. 3. The President exercised his prerogative to deal directly with Napafias instead of Officar-in-Charge of the PNP (OIC-PNP) Police Deputy Director General Leonardo Espina, While the President has the prerogative to desl directly with any of his subordinates, the act of dealing with Napefias Instead: of OIC-PNP Espina bypassed the established PNP Chain of Command. Undar the Manual for PNP Fundamental Doctrine’, the Chain ‘of Command mins upward and downward. Such Manval requires the commander to discharge his rasponsibilities through a Chain of mand. . 4. The suspended CPNP Purisima violated the preventive suspension order issued by the Ombudsman when he participaled in the planning and execution of Oplan Exodus. He also violated the Special Order No. 9851 dated December 16, 2014 issued by OIC-PNP Espina, directing him and other suspended PNP officers 10 “cease and desist from performing the duties and functions of their respective offices during the pendency of the ‘case until its termination,” 5. In tha same meeting where the President instructed Napefias and ‘ssuspanded CPNP Purisima to coordinate with the Armed Forces of the Philippines (AFP)°, POG Purlsima therealter said to Napefias: “Ako na ang bahala kay Catapang." The PNP Ethleal Doctrine Manual cites, "Word of Honor — PNP members’ word is their bond, They stand by and commit to it" The statement of Purisima may be construed as an assurance of Providing the coordination instructed by the President. 6. Suspended CPNP Purisima provided inaccurate information to the President about the actual situation on the ground when he sent text Messages to the President stating that SAF Commandos were pulling out", and that they were supported by mechanized and artillery support ? 2 PNPM-D-01213 DHRDD October 2013 Revisad Edition * Based on the affidavit of Napefias, on January 09, 2015, the President stated in the presence of guspenied CPNP and AD, IG that" Yung coordination with AFP ha, wag kallnutan” “POG: Purisima to Prasident Aquino (726 AM, January 25, 2015): “Sr accordingly, when the nearest targot irom the line of spproach is Mi and when they hit the primary target, the other aea ae 7. Despite his knowledgs of the suspension order Issued by the Ombudsman, Napefias followed the instructions of suspended GPNP Purisima not to inform OIG-PNP and the Secretary of the Inletior and Local Government (SILG) Mar Roxas about Oplan Exodus. This violated the PNP Chain of Command. 8. Napefias falled to stfectively supervise, control and direct personnel, which resulted in heavy casualties of the SAF Commandos. Under the Manual on Fundamental Doctrines, Command Responsibility means that commander is responsible for effectively supervising, controlling, and directing his personnel, Under the sama doctrine, a commander is responsible for what his unit does or tails to do, 9. Napefias followed his Time-on-Target (TOT) coordination concept despite the directive of the President to coordinate with the AFP prior to the opetation. 10. The TOT coardination cancept adopted by the SAF does not conform with the establishad and acceptable operational concepts and protocols of the PNP, 11, The protesois of the established peace process mechanisms, through the Coordinating Committee on the Cessation of Hastlities (CCCH) and Ad Hoc Joint Action Group (AHJAG), were not observed during the planning and execution ot Opian Exodus, 12, The mission planning of Oplan Exodus was detective due to: (1) poor analysis of the area of operation; (2) unrealistic assumptions: (3) poor intelligence estimate; (4) absence of abort criteria; (5) lack of flexibility in ts CONOPS; (8) inappropriate application of TOT; and (7) absence ol prior coordination with the AFP and AHJAG. 13. The following factors affected the execution of CONOPS: (1) mismanaged movement plan from staging area to Vehicle-Drop-Oft Point (VDOP); (2) failure to occupy the designated way points; (3) inelfective communication system among the operating troops; (4) unfamiliarity with the terrain in the area of operation; (5) non-adherence to operational/actical Standard house where basit usman was focated with other elements reacted and fred av the tadpers. Fin weve about 15 to twenly armed elements. i was abou! 430 am and. Was decided that they aon Alor gathering pltwes and other evidences. They were not abta to reach the sooonisary dangers sir" {POG Purcima to President Aquino (ne specie ima, January 25, 2015) “They ave presently ta ontact with reinforcing elsmants from Bit. The containment farces are the ongs 1 coniact Agit ‘now. They are supported by mechanized and artilory supper Sir=ah oad dR GR PR aes * dt at odd tlooda ti ab oil il 14, 15, 16. 17. 18, 19. 21. 22 Operating Procedures (SOPs); (6) lack of situational awareness among commanders; and (6) breakdown in the command and control. Ariillery support from 6" Infantry Division of the Philippine Army (8ID-PA) was not delivered when needed most because Major General Edmundo Pangiinan, Division Commander of 61D, considered the on-going peace process and protocols in the use of artillery. ‘The lack of situational awareness, limited cover and concealment, inefective communication, and sustained enemy fire prevented the 1st Special Action Battalion (iSAB) and 4SAB containment forces from reinforcing the beleaguered $5” Special Action Company (SAC) troops. ‘CCCH and AHJAG undertcok all efforts to reinstate the ceaselire. “Pintakasi" and the loose command and control of the MILF leaders over their field forces contributed ta the difficulty in reinstating the ceasefire. Some of the radios of the SAF Commandos were unreliable because these were not designed for military-type tactical operations, The batteries had peor power-retention capability due to wear-and-tear. Furthermore, SAF radios were not compatibia with AFP radios for interoperability, There was @ breakdown of command and control at all levels due to ineffective and unreliable communication among and between tha operating units, There are indications that 5Sth SAC was not able to secure its perimeter, conduct reconnaissance, occupy vantage positions and establish observation posts. Several rounds of ammunition of M203 grenade launchers were detective. The United States invelvement was limited to intelligence sharing and medical evacuation. Only SAF Commandos were involved in the actual combat operation of Oplan Exedus Autopsy reports indicate that four (4) SAF Commandos were shot at clase-range while they were stil alive. Records also indicate the possibility that some SAF Commandos were stripped-off their protective vests prior to being shot at close-ranga. RECOMMENDATIONS: Based on this Report's findings and conclusions, the Board of Inquiry (BO!) recommends the following:10. ‘Where the facts of this Report indicate possible violations of existing laws and regulations, appropriate goverment agencies should pursue the Investigation of the Mamasapano Incident to determine the criminal and/or administrative liabilities of relevant government officials, the MILF and other individuals. The AFP and the PNP, in coordination with OPAPP, should immediately review, clarity and strengthan the Jaint AFP/PNP Operational Guidelines for Ad Hoe Joint Action Group especially in the area of coordination during Law Enforcement Operations (LEO) against HVTs. The AFP and the PNP should jointly review related provisions of their respective written manuals and protocols ta synchronize, reconcile and institutionalize: Interoperability not only between these two agencias but also with other relevant government agencies. The Natienal Crisis Management Core Manual (NCMC Marwal) could be one of the essential references. Crisis management simulation exercises (similar to fire and earthquake drils) should be regularly conducted among key players ineluding local government units particularly in conilict prone areas. The PNP should formally create and institutionalize a permanent affice to orchestrate and synchronize Institullanal responses 10 various situations such as the peace process In Mindanao and other related situations. The understaffed and ad hoc arrangement provided by the existing PNP Focal Team on the Peace Process (FTPP) and the recent designation of a ‘senior police official in AHJAG are examples of usual short-term solutions Which do not appear to be sufficient. Ths PNP should review Its Police Operational Procedures to cover ‘operations similar to Oplan Exodus and to clarify coordination issues. The PNP should craft its own Mission Planning Manual and institutionalize its application in PNP law enforcement operations. The capabilities of SAF and other PNP Maneuver Units for Move, Shoot, Protect, Communicate and Close Air Support (CAS) should be enhanced. The PNP should review its supply management system to ensure ‘operational readiness of munitions and ordnance. Cross-training between the PNP and the AFP pertaining to management and execution of | military-type tactical operations should be institutionalized. O il11. The PNP should immediately grant 1 rank promotion to all surviving members of the 84th Seabome and PO2 Lalan for their heroism and gallantry in action, posthumous promoticn to the fallen 44 SAF commandos, and should give appropriate recognition to all other participating elements.9 00 9) 0d OY OO 1 i ii di di di *s CHAPTER! The PNP Board of Inquiry A. CREATION AND ORGANIZATION The Board of Inquiry (BO! or Board) was creatad by the Philippine National Police (PNP) to investigate the facts and circumstances surrounding the encounters in Mamasapano, Maguindanao on January 25, 2015. Collectively relerred to as the *Mamasapano Incident’, this resulted in a large number of deaths and injuries, including forty-four (44) Special Action Force (SAF) Commandos, five (5) local residents, and, according to the Mora Islamic Liberation Front (MILF) leadership, about eighteen (18) of their members, Police Deputy Director General Leonardo Espina, the Otficar-in-Charge of the PNP (QIC-PNP), acting on the directive issued on January 26, 2015 by the Department of Interior and Local Government Secretary (SILG), and National Police Commission (NAFOLCOM) Chairman Mar Roxas, activated a three-man fact-finding and investigative body compased of star-ranked PNP officers, namaly: Police Director Benjamin Magaiong as Chairman, and Police Director Catalina Rodriguez and Police Chief Superintendent John Sosite as members. ‘The BOI then organized a select group of senior and middle-grade PNP officers, who are knowledgeable in SAF and PNP operations, into an Operational Aucit Team (OAT). Specifically tasked to support the Board in its tact-tinding investigation, the OAT is comprised of Police Senior Superintendent Robert Po as the Team Leader, and Police Senior Superintendent Ronald Dela Hosa, Police Senior Superintendent Cesar Hawthome Binag, Police Senior Superintendent Benigno Durana and Police Chief Inspector David Jay Duarte as members, The BO! was vested with the authority to direct any officer, office or unit of the PN to provide the necessary personnel and documentary support. It could also invite and coordinate with resource persons from the Armed Forces of the Philippines (AFP), the Coordinating Committee on the Cessation of Hosliltios (CCCH), Ad Hoc Joint Action Group (AHJAG), and other government and non- government entities to pursue its tasks. 6B, OBJECTIVES ‘The BOI was tasked to accomplish the following objectives: 1. Establish the facts regarding Operation Pian (Opian) Exedus. in particular, i. ee«provide a detailed narrative of the operation based on facts collated from various parties, offices, units and organizations involved; © delermine possible strategic, operational and lactical lapses cormitted during the planning and execution of the operation: and © provide recommendations in order to address such possible lapses, 2. Review the elficiency, effectiveness and responsiveness of the peace mechanisms ef both the Government of the Philippines and the MILF in relation to the Mamasapano Incident. Cc. FRAMEWORK AND METHODOLOGY 1. Conceptual Framework Figure 1, Canceptunl Framework The BO! designed this Conceptual Framework as a guide in preparing “The Mamasapano Report’ The framework covers the strategic and operationaltactical perspectives, The three (3) phases of Oplan Exodus, specifically the mission planning, mission execution, and post-mission actions were examined through these perspectives. The framework was meant to capture the whole spectrum ot events starting {rom the previous operations up to the conclusion of Oplan Exodus. ee ae"I i MN I * provide a detailed narrative of the operation based on facts colisted from various parties, offices, units and organizations involved; * determine possible strategic, operational and tactical lapses committed during the planning and execution of the eparation: and * provide recommendations in order to address such pos: lapses, fe 2. Review the efficiency, eifectiveness and responsiveness of the peace mechanisms of both the Government of the Philippines and the MILF in relation fo the Mamasapane Incident, FRAMEWORK AND METHODOLOGY 1. Cones; rt Figure 1. Conceptual Framework ‘The BO! designed this Conceptual Framework as a guide in preparing “The Mamasapano Repo’, The framework covers the statogic and operationaltactical perspectives. The three (3) phases of Gpian Exodus, Specifically the mission planning, mission execution, and post-mission actions ware examined through these perspectives, ‘The framework was meant to capture the whole spectrum of events starting trom the previous eperations up to the conclusion of pian Exodus.‘The conclusions and recommendations of this report were developed using this framework Oper nal Framework ~ - EE Chain of Command commanc Responelciny Coonsination : Operation Pian Exadus Exzcution ‘Command ang Contat Logistics AFP and Pie Responses US. Invetomract Eftrts of the Fs Frocets Mechanisms, Autopsy Report Table 1.Operstional Framework The Operational Framework examined eleven {11} Issues that were derived : from the Conceptual Framework, These issues were evaluated against the planned actions and actual outcomes. Any and all lapses were astablished based : on the deviation from the generally-accapted standards and policies.3, Methedology on Data Collection a. Primary Data Gollection a1. Sworn Statements/Subscribed Affidavits ‘The BO was supported by the Special investigation Team of the Criminal Investigation and Detection Group (CIDG), which is composed of forty-six (46) investigators from the Major Grimes Investigation Unit (MCIU), and the Gentral, Southam, Eastemn and Westem Mindanao CIDG affices. They secured the affidavits of PNP and AFP officers and personnel who directly participated in, and provided support to, Oplan Exodus. Moreover, the Board took the sworn statements of key personalities of the MILF and CGCH aswell as personnel of the Police Regional Ollice of tha Autonomous Region of the Muslim Mindanao, Philippine National Police 346 Armed Forces of the Philippine: u Coordinating Committee on the ‘Cessation of Hostilities 4 Others 3 TOTAL 367 Table 2. Recapitulation of Sworn Stateinents Obtained by and Submitied to the BO! a2. Interviews Just a few hours alter SILG Roxas and OIC-PNP Espina annaunced the activation of the BO! on January 25, 2015, the BOL Chairman immediately initiated the fact-finding investigation by requesting for an extensive and detailed brialing on Oplan Exodus from Police Director Getullo Napafias, the then Director of SAF (QSAF), During the said brieting held at SF's temporary billating area in Puerta Azul Pension House, Cotabato Ciy, informal dialogues with DSAF, his Deputy and stalf oflicers, and the surviving ; Pe am DF ohi bod oa al id da ai au = members o! the 84" (Seaborne) and 55" Special Action Companies (SACs) were also undertaken. Thereafter, the BO! identified a total af forty-two (42) individuals who had key decision-making rales in Oplan Exodus. The ‘order of their participation in the spectrum of mission planning, execution and accomplishment was the basis of the Board in Scheduling the sequence of the formal interviews. Participation was stratilied according to strategic, operational and tactical levels. ‘Among the high-ranking PNP officers who were interviewed were: OIC-PNP Espina, Police Senior Superintendent Femando Mendez of the PNP intelligence Group (IG), and Napefias who, in Particular, provided extensive information relating to Optan Exodus, On the operational level, the BO! conterred with Police Chiel ‘Superintendent Noli Talifio, the Deputy Director of SAF, On the tactical level, the intarviewoes were composed of the SAF's Battalion Commanders, Company Commanders of the Main Effort and Support Effort units, taam members of the ground units, and personnel assignad at the Tactical Gommand Post. On the side of the AFP, the BO! interviewed Lieutenant General Rustico Guerrera of the Westem Mindanaa Command, Major General Edmundo Pangllinan, the Cammander ot the 6” Infantry Division of the Philippine Amy; Brigadier General Carlito Galvez of the Goverment of the Republic of the Philippines (GAP)- ‘COCH; Golonel Gener Del Rosaria, the Brigade Commander of the 1* Mechanized Infantry Brigade, Colonel Melquiades Feliciano, the Brigade Commander of the 601" Infantry Brigade; Lieutenant Colone! Romeo Bautista, the Battalion Commander of the 45" Infantry Battalion, and other AFP officers and Non-Commissioned Officers. a.3, Site Survey From February 23 to 26, 2015, the BOI, with the OAT, visited Barangay Tukanalipao, Mamasapano, Maguindanao, and the predetermined target waypoints and locations of the othar SACs uring the execution of Oplan Exodus. The objective was to evaluate how the terrain affected the operation, The primary data gathered fram the site survey were used to reconstruct the series of €vents in tha Mamasapano Incident. Ltb, Secondary Data Collection Secondary sources include documents that were crealed or produced during the mission planning process, and those that were eventually requested by, and submitted to, the BOI, These include, but are not limited to, the OAT Fiaport, feedback to and from the families of the demised and injured SAF Commandos through the Quality Assurance Service to Victims! Desk of CIDG; Transcripts of Stenographic Notes (TSN) of the respective Jaint Committee of the Senate and the Hause of Representatives; copy of Short Massaging Service (SMS) messages derived by the Anti-Cybercrime Group (ACG) of the PNP through digital forensic of submitted cellular phones and SIM cards; digital photographs of SMS messages taken by CIDG investigators with the expressed consent of the cellular phone subscriber or owner; lists of SMS messages submitted to the BO! by kay individuals; news clippings and video footages; related literatures and manuals; ‘Opians and tactical maps; and other official documents. Among others, the memoranda and letters sent out by the BO! were requests lor Alter Operation's Reports from the concemed PNP offices and AFP units; copy of Oplans Wolverine and Exodus, and other pertinent documents from ‘SAF; turn-over of cellular phones and SIM cards by key personaitties; forensic digital examination of cellphones and SIM cards by the ACG; copy of tha TSN of ihe Congressional Hearings; copy of Warrants of Arrest of Marwan, Usman and Baco; verification of the personal firearms of SAF Commandos by the Firearms | and Explosives Ottica; forensic examination results of the SAF firearms returned by the MILF to the PNP and AFP by Crime Laboratory Group; and the tumover ot Geographical Positioning System devices used by SAF Commandos in the @xacution phase of Opian Exodus. > The Board also issued letters requesting for assistance in locating and setting-up interviews with individuals who uploaded the viral video that featured the shoating-lo-death of a SAF Commando, Lastly, letters were also sent out to media outlets for transcripts of interviews, and video footages of interviaws and appearances of specific individuals particularly those that were publishad on diffrent media platforms or aired on national and local telavisions, respectively, As a matter of security, the requested documents and information, in soft and hard copies, including all drafts, notes and other data used and produced by the BOI were classified as ‘SECRET’ All personnel involved in the fact-linding investigation underwent a process to secure tha appropriate security clearance from the Direclorale for Intelligence ‘of the PNP and were required to sign @ Non-Disclosure Agreement, te POPS ‘‘These Document Security policies were strictly implemented by BOI Chairman Magalong, through the Acting Chiet of the Inteligence Division (ID) of CIDG, whe was designated as the Security Officar of the BOI, and Team ID. D. LIMITATIONS OF THE REPORT In general, the one-month window to prepare an all-inclusive report on the Mamasapano Incident was a tight timeline considering the volume of documents, ‘and the large number of data and statements that had to be gathered and reviewed by the BOI. Due to time and/or opportunity constraints, and despite efforts exerted to address the same, The Mamasapano Report tailed to include direct inputs Irom cerlain key personalities. In particular, the Board fallad to secure an interview with the President and Commander-in-Chiet, SILG Roxas submitted his affidavit with an attachment containing his SMS exchanges with the President, O1C-PNP Espina and Napefias. Attempts to interview Police Director General (POG) Alan Purisima likewise did not materialize. In lieu ef an interview, he submitted a sworn statament and a document containing an enumeration of his SMS exchanges with the President, AFP Chief of Staff AFP (CSAFP) General Gregorio Catapang, Guerrero and Napefias Despite the BOs otforts, it was also unable to secure Interviews with key officials of the AFP including CSAFP Catapang and Guerrero, In lieu of an interview, Guerrero submitted a swom slatement, The BO) did not have access to other crucial information such as call and SMS message logs, and the text content of the SMS messages sent and received by majority of the key personalities before, during and after the execution of Oplan Exodus ‘The Board requested key personalities 10 submit their cellular phonas for digital forensic examination by the ACG, CSAFP Catapang and Guarero refused to submit their cellular phones to the BO! Suspended CPNP Purisima also refused to tum-over his cellular phone to the BOI, PDG Purisima’s swam statement included, as an altachment, @ transcript of his SMS exchanges with the President an January 25, 2015. The BO} natad that such transcrip! did not consistently Indicate the time when the SMS messages ‘were sent and/or received by PDG Purisima or the President. Out of a total eleven (11) SMS messages exchanged between them, only five (5) messages indicated for re canthe time of transmission or receipt, The BO! also observed that there appears to = be an unusually long gap or an absence of SMS exchange balwaen PDG Purisima and the President after 11:38 am. and before 06:20 p.m. The BO! could not determine on the basis of the submitted transcript if the eleven (11) messages = enumerated therein were the only SMS exchanges between POG Purisima and the President on January 25, 2015, The BO! could also not determine on the basis —= of PDG Purisima’s lranscript whether the absence of SMS axchange between him

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