E/CN.4/1991/17 page 70 216. The total approach strategy, mentioned before, is embedded in a three-tiered defence system for internal security, consisting of three components: (a) The Military Mobile Forces (the Armed forces proper) consist of combat units and are primarily responsible for the clearing phase; (b) The Territorial Forces, which play a preponderant role in the holding and consolidation phases have a dual composition: they consist of the police (the Philippine Constabulary and the Integrated National Police) on the one hand and the Citizen Armed Force Geographical Unit (CAFGU) on the other hand. The Philippine police is part of the armed forces; there is no civilian police apart from the fact that the National Bureau of Investigation has police powers to conduct investigations in criminal cases and disposes of qualified personnel to carry out this specific task. The CAFGUs are composed of reservists and are part of the military system. Although it is maintained that the army strictly controls the CAFGUs and that applicants with a criminal record are rejected, concern has been expressed by various civil authorities and human rights organizations about their undisciplined behaviour, reportedly resulting in serious human rights violations. Another reason for concern is that the CAFGUs sometimes hire themselves to private business concerns, a phenomenon that has raised doubts about their loyalty to the Government; (c) The third element of the three-tiered defence system for internal security consists of the Civilian Volunteer Organizations, or Bantay Bayan. These CVOs, to which a role is assigned in the consolidation phase, are not part of the armed forces; they operate under the supervision of the local authorities. The function of the CVOs is formally seen as an expression of the constitutional rights of citizens (art. XIII, Sect. 15) to organize themselves to protect their interests. They are supposed to enhance the campaign for peace and order in their respective localities and should strictly adhere to the orders of military and civilian authorities. In principle they are unarmed, but members who are authorized to carry arms, can keep them while carrying out their function. 217. Although the Government considers the CVOs to be an essential element of the system to maintain internal security, non-governmental sources have expressed fear that the CVOs function is the same as that of the notorious armed vigilante forces under the Marcos regime, which were responsible for serious human rights violations and are formally banned by article XVI, Section 24 of the Constitution. It is also said that recruitment is not entirely voluntary and that their creation blurs the roles of the military and the civilians, thereby contributing to the militarization of Philippine society. 218. The process of restoring peace and ending the insurgency is co-ordinated by Peace and Order Councils (POC), which operate at the national, regional, provincial, city and municipal level. These POCs consist of representatives of the Department of Local Government, the military and the private sector. 219. At present the Philippines does not have a Department of the Interior but a Department of Local Government. A bill is pending before Congress intended to supplant the latter by a Department of the Interior with supporting agencies such as a Philippine National Police. If this bill is enacted,