“He could have inflicted maximum casualties, but he did not,” Mr. Albayalde said.

The authorities did not say why it took so long for so many bodies to be found. Officials denied that the police response was slow and said that they arrived at the scene within minutes.

In the early hours of Friday, Ronald dela Rosa, the director general of the national police, had said “We’ve cleared everything” and “As of now the situation is going back to normal.” And Stephen Reilly, the chief operating officer of Resorts World Manila, said all guests had been accounted for and were safe.

At least one employee of the complex, however, appeared to be missing in the early hours after a plume of smoke was seen pouring from the casino.

“Where is my daughter? I haven’t heard from her. Where is she?” Gil Emyongco, the father of Hazel Emyongco, a 29-year-old table supervisor, asked the police and witnesses gathered outside. He said he had been waiting for her to exit for more than five hours but had yet to see her.