EFFECTIVE ADMINISTRATION OF THE POLICE AND PROSECUTION IN
CRIMINAL JUSTICE OF PAPUA NEW GUINEAJohn Maru*
The criminal justice system of any society depends very much on the thorough, efficient and effective functioningof its pillars that are involved in the dispensation of justice.
As these pillars are separate entities the efficiency and effectiveness of one can easily be hampered by the inefficiency
and incompetence of the other. Therefore in order for the system to operate smoothly, co-operation, coordination andconcerted efforts of the pillars, namely the police, the prosecutors, the judiciary as well as the correctional services isnecessary.
Unfortunately this is easier said than done especially in a country like Papua New Guinea (PNG) where thegovernmental agencies are beset by financial, technological and other institutional restraints and where the citizenry areincreasingly becoming alienated from each other.
I. SEPARATION OF POWERSThe Constitution of PNG divides the government into three equal and coordinated branches, namely the legislative,executive and the judiciary, each of which is supreme within their respective spheres. Neither of them may encroach
upon the function or domain of the other.
The law-making function is lodged with the National Parliament of PNG, whose members are elected by the peopleof the whole country. The executive function whose duty it is to enforce the laws falls on the Prime Minister of thecountry. It is to the Supreme Court and the other courts created by law that the judicial functions are lodged.
Among these three branches, those that are directly involved in the administration of justice are the executive branchthrough the police and the other numerous law enforcement and prosecution agencies, as well the correctional institutions,and the judiciary.
The agency that is primarily in charge of law enforcement is the Royal Papua New Guinea Constabulary and thecontrol comes under the Minister for Police in political matters and the Commissioner of Police for all its day-to-day
operational requirements.
The Public Prosecutor’s office is the principal agency in charge of the prosecution of offenders and comes under thecontrol of the Minister for Justice. There is however, a unique agency of the government, which is the Office of theOmbudsman, charged with the investigation and prosecution of certain crimes involving public officials or those connectedwith the performance of public functions.
II. THE FIVE PILLARS OF THE CRIMINAL JUSTICE SYSTEM
A. The Law Enforcement
The law enforcers are at the forefront of the criminal justice system of the country. They are the ones that directly
deal with the citizens and are directly exposed to the criminal elements. There is, therefore, the necessity for the membersof these law enforcement agencies to be well oriented with, and trained in the ways of the civil society.
Thus, the Royal PNG Constabulary is charged with the duties of crime prevention, law enforcement, preservationof peace and order, and as well as the internal security of the government of the day.

* Director Prosecution,
Royal Papua New Guinea Constabulary,
Papua New Guinea

158120TH INTERNATIONAL SENIOR SEMINARPARTICIPANTS’ PAPERS
Also within the police organizations, there is an Internal Affairs directorate tasked with the investigations of complaints
against erring officers. The efficiency and effectiveness of this directorate help polish the image of the police organization
as a body that people can rely on.
B. The Public Prosecutor
The prosecution function is lodged mainly with the Public Prosecutor’s office, under Department of Justice. It is
composed of the Public Prosecutor’s office, regional and provincial prosecutor’s offices. The Office of Public Prosecutor
has the following functions:a)b)c)Receive files from law enforcement and other investigative bodies and prosecute crimes
Decide appeals from decisions of the regional and provincial prosecutors
Investigate administrative charges against prosecutors

The regional and provincial prosecutor’s office is charged with the administrative task of supervising and coordinatingprosecutions within the region and the provinces.
There has been innovations instituted by the prosecution department with regard to the handling of cases involving
different crimes, particularly in terms of specialization in the handling of criminal cases, however dire shortages ofmanpower experienced by the department, has had prosecutors handling variety of criminal matters as they become
available. This has led to prosecutors being assigned cases that they are not familiar with, particularly the intricacies andstrategies in handling of such cases.
The Public Prosecutor is also involved in special cases that are referred from the Office of the Ombudsman. The
office of the Ombudsman is created under the Constitution of PNG and is independent of the executive branch of thegovernment. This office is mandated among others, to investigate and refer to the prosecutor’s office cases involving
public officials and employees who have committed crimes in relation to their employment. It is because of this functionthat its independence is of paramount importance - reason being to insulate it from the political branches of the government.
The other agency is the Electoral Commission. This agency is charged with the investigation and the enforcementof all election related matters. Matters related to electoral offences are also referred to the public prosecutor’s office fordetermination as to whether or not offenders be charged or prosecuted. This office is also independent of the three mainbranches of the government.
There is also an Office of the Public Solicitor. They are paid by the government to provide legal assistance to thegeneral public who cannot afford to pay their own legal costs. Financial and other institutional restraints like staff shortages,
however limits the number of the cases defended by this office. Accordingly the Public Solicitor is quite stringent as towhich cases are to be defended. Their setup in the regional and provincial level is similar to that of the Public Prosecutors.
There are also institutions or individuals outside the government that are offering legal assistance to the needy, likethe PNG Law society and the legal aid programmes of the law school at University of PNG.
These benevolent institutions and the individuals help immensely in the administration of justice, as they facilitate
the disposition of cases before the prosecutors or the courts and safeguard the constitutional rights of their clients.
C. The Judiciary
The judiciary is the final arbiter of controversies, of competing claims and interests, including the determination ofguilt or innocence of a person charged with the commission of a crime. The judiciary in PNG is composed of a Supreme
Court, which is at the top of the hierarchy, and the other courts created by law.
The judiciary is independent and has it’s own fiscal autonomy. The Chief Justice is charged with the responsibility
to oversee its functions. The executive branch of the government appoints the members of the bench with the Prime
Minister of PNG as the chairman. The Judges are only removable from office by a serious breach and conviction of a
culpable violation of the Constitution, treason, bribery, graft and corruption, other high crimes, or betrayal of public trust.
The other courts are the National Court, District Courts, Local Courts, village courts and the ‘special courts’. Dueto the diverse nature of the country with its many cultures and a little over 700 different language groups, there is acombination of traditional and imported court systems.

159

RESOURCE MATERIAL SERIES No. 60
The Supreme Court, the National Court, and the District Courts are based on European models and have many formalrules. Appearances at these courts normally require assistance of lawyers to present arguments because of the laws andthe legal procedures involved. The Local Courts and Village Courts however are more informal and are intended to deal
with customary complaints between citizens.
Village Courts normally take cares of problems of 5 or 6 nearby villages or settlements. The magistrate is normallya local resident appointed by the people of the area covered by the court. The aim is to have people settle local disputes
in their own way.
Then we have the Special Courts. These courts have limited powers. Examples of these courts are: Land courts,Juvenile courts, Coroners court, Wardens court and finally the Court of Disputed Returns.
D. Correctional Institutions
The agencies involved in the punishment of convicts fall under the Ministry of Correctional Services. TheCommissioner of Corrective Services is charged with the operational and administrative responsibilities of the services.
E. The Community
The members of the community also play a very important role in the criminal justice system. It is from their ranks
that the offenders come and it is with them that they will end up. The involvement of these people in the programmes
and projects of the government, even those that are not necessarily connected with the administration of justice, contributeto the lessening of crimes, as their efforts are diverted to more productive matters. They can also contribute immensely
in solving crimes by assisting police in investigations, giving testimonies, providing leads and the arrests of criminals.
Included as part of the communities are government agencies not involved with the administration of justice, as well as
the members of the private sectors.
III. PROCEDURES IN THE ADMINISTRATION OF JUSTICE IN PNG
Majority of the crimes committed in main urban centers of PNG are property related. Car jacking, break-enter andstealing, and armed robberies top the country’s list everyday. Rapes, murders and drugs related matters are also commonoccurrences.
Regardless however of the types of the crimes committed, be they heinous, serious or light, the procedure for theinvestigation, prosecution and trial of the cases is more or less the same, except for those triable under the rules of summary
procedures.
A. The Law Enforcement Process
The enforcement process begins the moment the crime is reported or a complaint is filed before the police. The policethen conduct an investigation of the crime, take testimonies of witnesses, collect available evidences and take steps toapprehend the offender.
In cases where the police in the act of committing the crime, attempting to commit or having just committed theoffence catch the offender, the suspect is detained. The arresting officer than decides if a crime has been committed ornot. If he is satisfied than he/she prepares the appropriate paper work and information to have suspect processed.
If on the other hand there exists some doubt as to the proof of his case, then the member has to arrange for the releaseof the suspect. The decision as to whether or not to charge is made on the ground by the general duty members attending
to complaints or CID members following a case.
If in the event that a decision to charge has been taken, then appropriate paper works or the complete file is thenforwarded on to the prosecution section of the police Force who will then have suspect arraigned the next (working) dayat a courthouse.
B. The Prosecution Process
Once the investigating officer is through with the investigation of his case, he forwards his findings to the OIC ofthe police prosecution unit for the proper procedures. If the OIC is satisfied with the file, the matter is then filed at thecourthouse. Police prosecutors handle all minor criminal matters at the local or the district court level. Serious criminal
matters are normally referred as an ‘hand-up briefs’ through a grade 5 District court magistrate to the Public Prosecutor’s

160

120TH INTERNATIONAL SENIOR SEMINARPARTICIPANTS’ PAPERS
office for election as to whether the matter be referred to a National court for a trial. If the public prosecutor is of theopinion that the matter can be tried successfully at the National court his office takes over the file and his aides handle
the matter.
C. The Judicial Process
Criminal matters in PNG are cited as The STATE versus (name of the accused). Once the Public Prosecutor’s officetakes carriage of the matter it is then filed at the National Court with a date set for the arraignment of the accused. At theset date the charges are read to the accused that then takes a plea. If he pleas guilty the matter is concluded without aprolonged trial, however if the accused pleas not guilty, then the matter is adjourned for a date where the trial will takeplace with appropriate witnesses from both sides in place to give their testimonies.
During the adjournment period normally a Pre-Trial conference (PTC) takes place between the prosecutor and theaccused’s counsel to sort out all the minor details so that a speedy trial will ensure at the date of trial. Matters dealt withand agreed upon at the PTC are inadmissible as evidence against the accused. Unless the same is reduced to writing andsigned by the accused and their counsel. Many judges are particular about PTCs and its importance and therefore nonattendance to a PTC by counsels can become a subject for sanction at the discretion of the Judge.
At the trial the prosecution witnesses are individually dealt with first and cross examined by the defence counsel,
followed by re-examination by the prosecutor. After all the prosecution witnesses have been through, the defence brings
his witnesses to the box after the accused had given his side of the story. Defence witnesses are then cross examined by
the prosecutor, followed by re examination by the defence counsel should there be any damage caused by the crossexamination.
After the judge has heard all the witnesses from both sides, submissions are made by both the prosecution and thedefence. The matter is normally adjourned at this stage for a decision to be made by the judge.
During the trial rules of evidence is of paramount importance. PNG has not yet gone into the use of technology inthe courtroom but several systems have been looked at, which will no doubt speed up trials because accused do not need
to be personally in the court room to have their matters heard. This will no doubt save the judiciary system a lot of timeand monies in moving prisoners from one location to another.
D. Remedies For The Accused
When the court finds that the evidence against the accused is insufficient to convict, the accused is acquitted and noaccusation based on the same act(s) can be filed against him, nor can any appeal be therefrom because of the principleof double jeopardy.
If on the other hand the court is satisfied beyond reasonable doubt with the evidence presented to him by theprosecution, he will convict the accused and sentenced him accordingly after the counsels have addressed on the sentence.
The accused has a right to appeal to the Supreme Court on the following grounds:a)b)that errors of law or irregularities have been committed during the trial prejudicial to the substantial rights of theaccused.
that new and material evidence has been discovered which the accused could not, with reasonable diligence, havediscovered and produced at the trial, and which if introduced and admitted, would probably change the judgmentof the court.

E. Inefficiency in Court Proceedings
The following have been identified to be the cause for delays:a)
b)
c)
d)
e)

Increase in number of cases filed at courts due to the general population becoming more aware of their legalrights.
Lack of courts and slowness in filling up vacancies on the bench.
Budget allocations by the government do not meet needs.
The complexity of the rules of the procedure.
Failure in the cooperation of court related agencies

161

RESOURCE MATERIAL SERIES No. 60
F. Overcrowding of Jails
As the National and the Supreme Court diaries become increasingly filled with backlog of cases from the past years,
the jails throughout the country are beginning to overcrowd into dangerous proportions.
In the last few years there has been a numerous breakouts from jails through out the country, with the latest one inJune/July of last year 2001, where little over fifty prisoners dashed for freedom from an overcrowded jail just outside of
the country’s capital city. At the time of this writing less than 15 escapees from this breakout have been recaptured. Someof those still at large are hardcore and quite notorious criminals.
Constant requests to the government from the police, the public prosecutor, the judiciary and the correctional services
for additional funding to meet respective needs have fallen by the wayside. This has not been by choice. The governmentof PNG in the last 10 years or so has been faced with some trying economical situations. During these times many
departments had huge financial cuts in their budget allocations and had to make do with whatever was allocated. The
effects of these are now becoming apparent.
G. Strategies
Towards the end of last year (2001) representatives from all the pillars of criminal justice system met at various
locations to discuss strategies as to how to deal with the concerns of overcrowding jails, the Constitutional rights
infringements, the health concerns and mass breakouts resulting therefrom.
The following matters were raised:a)b)c)d)e)f)g)h)Unnecessary arrests for trivial matters. The police through the appropriate commanders to bring to the attention of
their men and women to use more discretion in assessing situations before arrests are made.
Police Bails. Discretion on police bails should be encouraged wherever possible except for serious crimes.
Court Bails. Courts have been overly concerned at the number of absconders and have on many occasions issued
warrant of arrests, even in minor matters, rather then just having the bail forfeited. These have resulted in creating
backlog of cases all listed on the court diaries. In the event that the absconder is arrested he is remanded incustody for lengthy period of time waiting for his matter to come to court. Courts are encouraged to use discretion
particularly in minor and trivial matters.
Mediation. Police and courts to encourage mediation between parties to have matter dealt with according tocustoms to prevent workload for police, courts and the overcrowding of jails.
Indictable offences. In many instances police are to eager to have person arrested even before adequate evidence
is collected, resulting in suspects remanded for lengthy periods awaiting his file to be completed. Police
commanders to advise men to stop this illegal practice.
Indictable offences that can be tried summarily. District Court magistrates should use more discretion to havematters, which in their opinion can be dealt with in their court, finalized at the time it comes before them rather
than referring it to a committal court. They can take a plea so that the file is referred immediately to the publicprosecutor’s office for election, rather than await going before a grade 5-committal hearing, which could takemonths. Chief magistrate is tasked to discuss with his lower court magistrates.
Election responsibilities. This task is delegated by the public prosecutor to the senior police prosecutors toalleviate workload on his office.
Sentencing of prisoners. Magistrates should look at alternatives forms of punishment rather than having every
convicted offender for minor offences sent to jail. Community services or other informal punishment at thesupervision of police station commanders could be looked at.

H. Recommendationsa) Decriminalise some minor offencesb) Encourage out of court settlements such as mediation, counseling.
c) Police training to include mediation and counseling techniques.
d) Police to improve system of adjudication of court files to ensure sufficient evidence is on hand before charges arelaid.
e) Current procedure of issuing certificate of election be delegated to senior police prosecutors.
f)
Police and courts to encourage bails.
g) Call over and PTC between magistrates and counsels be introduced in lower courts.
h) Custodial sentencing to be discouraged for minor offences, particularly, first time offenders.
i)
Separate jail facilities for remandees and convicted prisoners.

162

120TH INTERNATIONAL SENIOR SEMINARPARTICIPANTS’ PAPERS
IV. CONCLUSION
As in any emerging society, our democracy cannot work unless the rule of law is objectively and impartially observed.
If the government do not themselves observe the rule of law, then our society is headed for disaster.
I believe that it is up to us, the disciplines that form the pillars of the criminal justice of our society. Our cooperation
with each other, regardless of the hard economical times that we are going through in limited resources, from finances
to manpower to infrastructures, absolute cooperation, coordination and concerted efforts will get us there.
I believe PNG is heading in the right direction by coming together to discuss its criminal justice issues and I lookforward to be part of that team.

163