In a world that increasingly calls for transparency, accountability, and ethical leadership, the transformation of the Jamaica Constabulary Force (JCF) stands as a beacon of progress. The transformation the force has undergone since 2016 has entailed policy reform, capability development, and modernisation, but also a profound shift in culture, attitude, and public engagement, aligning with the tenets of being “A force for good”, upholding the rule of law, and showing respect for all. This is the foundation on which my Administration has built a more capable force.

Since Independence, the JCF has undergone many changes, particularly in response to the evolution of the criminal landscape. Often these changes, although seemingly necessary at the time, were in fact knee-jerk reactions. The significant increase in armaments of criminal gangs that occurred in the 1970s sparked an arms race, which required the police force to re-arm and adjust the policing response to the surge in organised violence (predicated largely on political rivalry). This was in contrast to the pre-existing policing responses of the 1960s more suited to addressing the acquisitory crime and public order issues.

During this period of the 1970s, a hard-line policy response was adopted by the then People’s National Party Administration, under Prime Minister Michael Manley, to address the issues of rising political violence and organised crime. The 1974 Gun Court Act, which imposed indefinite detention for firearm offences, and the Suppression of Crimes Act, which granted police, among other things, warrantless search and detention powers, were indicative of the policy shift.

A 1976 State of Emergency further expanded security forces’ authority. The JCF’s Mobile Reserve, alongside the Jamaica Defence Force (JDF), conducted aggressive anti-crime sweeps, while a new Marine Police Division tackled transnational arms and narcotics smuggling. Consistent with policy, policing focus became increasingly operational, prioritising suppression of violence over community engagement and softer policing strategies. These new powers were often abused throughout the 1970s to 1980s, and inner-city garrison communities felt especially targeted.

By the 1990s, rising gang violence and public outcry over police abuses spurred reform efforts based on the findings of two Government-commissioned reports. The Hirst Report (1991) urged the JCF to adopt a clear mission — “To serve, protect and reassure” — and shift from reactive armed tactics to community-oriented policing. It also called for reducing specialised squads and improving training and accountability. The Wolfe Report (1993) advocated transforming the JCF into a professional, civil-oriented service, strengthening community policing, and enhancing intelligence-led crime fighting. Both reports stressed human rights training, tackling corruption, and stronger civilian oversight to curb excessive force.

In line with recommendations, the Government repealed the Suppression of Crimes Act in 1994 and, in 1998, the JCF formally announced a period of “police modernisation” to improve service delivery and public relations. However, over this same period, annual homicides steadily rose, reaching upwards of 1,000 people murdered in a single year for the first time in 1997.

The reforms suggested in the Hirst and Wolfe reports did not appear consistent with this level of violence, and unrealistic without significant investment in the force’s capacity. As murders increased, police killings remained high. The PJ Patterson Administration then attempted to push through force modernisation by bringing outside expertise from Scotland Yard into the JCF in 2005. By then annual homicides had surged from 439 to 1,674 – almost 300 per cent — since 1989; the public demanded a new approach.

Back in office in 2007, the Jamaica Labour Party immediately set about addressing the problem and convened a Strategic Review Panel, producing the report, ‘A New Era of Policing’ (2008), which outlined a road map for transformation. It called for enhanced accountability, intelligence-led policing, and cultural change within the force. In addition, one of the lasting legacies of Prime Minister Bruce Golding was passing the legislation to establish the Independent Commission of Investigations (Indecom) and develop a framework that saw to the probing of every killing by State forces.

However, by 2009 Jamaica’s homicide rate had reached its highest point. Organised crime and clashes between security forces and the armed gangs led to a watershed point in Jamaica’s history — the Tivoli operation of 2010. Following this operation, the murder rate in the country plummeted over the next two years, reaching a 10-year low in 2011. This level was largely maintained between 2012 and 2014 before rebounding from 2015 onwards.

Upon resuming office in 2016, my Administration embarked upon a comprehensive and strategic approach to national security. Security matters were included by the Government of Jamaica as benchmarks in the International Monetary Fund (IMF) standby agreement signed that November.

Some of these benchmarks related to police reform. This was a first for the IMF, where security was seen as a development metric. By December 2016 I appointed the first National Security Advisor (NSA) and established the National Security Council (NSC) as a committee of Cabinet, supported by the Office of the National Security Advisor (ONSA). Plan Secure Jamaica (PSJ) was then developed to provide the overall framework for national security. We recognised that, within the security architecture, a significant weakness was the inadequacy of the existing constabulary force to deal with the high levels of organised violence that had gripped the country for decades. A transformation of the JCF was required to meet the long-standing need for a modern, efficient, confident, motivated, capable, and trusted police force.

Aware of the length of time required to transform the police force and the pressing need for the immediate reduction of violent crimes, enhanced security measures were instituted through landmark zones of special operations (ZOSO) legislation, the strategic use of the emergency powers legislation, and the anti-gang legislation. The efficacy and strong accountability mechanisms attached to these powers saw reductions in criminal violence and also police violence in the established areas.

With this vision in mind, we have executed the most comprehensive transformation of the JCF in our independent history. Every aspect of the JCF that we have upgraded serves the dual purpose of improving their capabilities as well as the confidence of the public. The first crucial step in transformational police reform was to install leadership at the JCF with the capacity and understanding to lead massive change — at this point we note the contributions of former Commissioner Antony Anderson and the team of officers who embraced transformation. The JCF being the largest and one of the oldest organisations in the country comes with its inherent change resistance. Internally-led transformation could then be embarked upon, with clear policy guidance from the NSC and Ministry of National Security.

My Administration has invested unprecedented levels of funding in the JCF, averaging $9.7 billion annually. This is three times the amount expended by the previous Administration, and it was required to restore and upgrade the basic infrastructure to modern, citizen-friendly facilities, upgrade transport, and replace equipment that had been left to deteriorate for decades. Project ROC, launched in 2019, has seen the refurbishment and construction of police facilities across the island.

Further investments focused on improving technology, human capital, the welfare of officers, and internal accountability mechanisms. Concurrently, the JCF was applying intelligence-driven, data-supported, integrated policing strategies to tackle crime. Consistent national and community level engagements, transparency around crime data, and outreach through social media are ongoing trust-building activities. The implementation of ISO9001:2015 quality management systems and standards has improved the professionalism and standards of service delivery for the force.

The result of these investments and reforms has led to considerable progress towards the JCF’s transformation. The continual reduction in major crimes and murder is reflective of this more capable JCF. February 2025 recorded 47 murders — the lowest on record since 2000 — with only one murder in St James, one in St Elizabeth, one in Hanover, zero in Trelawny.

While we are seeing the positive results from these efforts in the declining homicide rates, continued oversight and reinforcement of the value of restraint are key to sustaining these gains. Our security forces must have the monopoly on the use of force on behalf of the State, and our security officers must therefore strive in every interaction with the public to demonstrate they can be entrusted with that responsibility.

At the same time, criminal elements must also understand that, regardless of what kind of firepower they may have, they stand no chance against a highly trained constabulary that has the country behind it. Their best strategy is to not come into conflict the police. They will lose. It is better to face a judge instead.

Significant investment and reform have gone into the JCF.

Dr Andrew Holness

Dr Andrew Holness is prime minister of Jamaica, minister of defence, and chairman of the National Security Council.