The Philippine government released only 61 pages of the 84-page report, omitting the 'conclusions on accountability', recommendations, highlights and epilogue. Aquino said those would be released after he had decided how to act on the report.

While many questions remain, the report concluded that the seven tourists and their guide were killed aboard a hijacked bus in Manila by hostage-taker Rolando Mendoza, 'based on case materials reviewed so far', the report stated.

Hong Kong officials were not convinced. A statement from the office of Chief Executive Donald Tsang Yam-kuen said: 'The report admits that the causes of death of the eight victims and the causes of injury of the seven others need to be further ascertained. Therefore, final conclusions have yet to be drawn. We expect the Philippine authorities to step up their efforts to complete the work as soon as possible.

'While we are not yet in a position to comment on the relevant conclusions, we acknowledge that the committee has been serious in handling the matter.'

The report criticised the 'total lack of a genuinely serious and well-planned out negotiation strategy' and the 'inefficient, disorganised and stalled assault' - critical mistakes that it said led to the deadly end to the hostage stand-off.

The report outlined in chilling detail the events and identified both systemic and individual failures.

At the top of the list was the failure of Manila Mayor Alfredo Lim to properly activate the crisis management committee, and more specifically to designate sub-groups to co-ordinate intelligence-gathering, psychological assessment of Mendoza and manage the media.

Authorities also failed to appreciate the nature of the demands of Mendoza, a sacked policeman.

'How or when the demand for 'an order for reinstatement to the service' was convoluted to 'a letter promising to review Mendoza's case' by the Ombudsman could not be satisfactorily explained by the authorities,' the report said.

The Ombudsman's letter and the way it was presented to Mendoza was another key turning point in the crisis. The hostage negotiators showed 'lack of judgment' in including Mendoza's brother, Gregorio, with the negotiating team. Mendoza fired a warning shot after becoming visibly agitated by his brother's words during the encounter. Top officials became distracted by Gregorio, who they accused of being a conspirator and an accessory to his brother.

'Precious time to salvage the negotiations, already critical at this later hour, was lost. The windows of opportunity were closing. This incident led to a chain of events that became the tipping point that pushed Mendoza to become fatally hostile.'

Gregorio's arrest by police led Mendoza to begin shooting.

The report criticised the decision by Lim and ground commander Rodolfo Magtibay to leave the command post to eat, an absence that 'created a vacuum in command or decision-makers. This resulted in the inability of those present to handle crisis events as they unfolded'.

The report took aim at top police brass for their failure to implement a presidential order that the Philippine National Police Special Action Force, the country's elite unit, be deployed in the assault. The poorly trained SWAT team of the Manila police was used instead.

'Foremost of [the reasons for the assault's failure] was the clear and patent insubordination of General Magtibay [in failing] to follow categorical orders from the president himself,' the report stated.

Former National Police chief Jesus Verzosa and Manila police director Leocadio Santiago 'miserably failed' in their duty to ensure Aquino's order was implemented.

The investigating panel recommended criminal or administrative charges against a dozen police and government officials, and journalists. These are: Lim, Verzosa, Magtibay, Santiago, chief hostage negotiator Police Superintendent Orlando Yebra, interior undersecretary Rico Puno, SWAT team leader Chief Inspector Santiago Pascual, Ombudsman Merceditas Gutierrez, Deputy Ombudsman Emilio Gonzalez, journalists Erwin Tulfo and Michael Rogas, and Manila Vice-Mayor Isko Moreno.

Aquino said he would decide whether to follow the recommendations when he returns from a seven-day working visit to the United States.

'As I am now leaving on an important mission, I want to emphasise that I do not want make decisions regarding such important matters without a thorough review. I will study their findings upon my return, and decide accordingly.'