PHILIPPINE BUREAUCRACY AND

ADMINISTRATIVE/
MANAGEMENT SYSTEM

Dr. Lizan E. Perante-Calina

Senior Vice President and Dean
Graduate School of Public and Development Management
Development Academy of the Philippines

President, Philippine Society for Public Administration (PSPA)

1
President, Philippine Futures Thinking Society (PhilFutures)
 OUTLINE OF PRESENTATION
PHILIPPINE ADMINISTRATIVE SYSTEM

I.  Philippine Administrative System as Defined

II.  Five Elements Constituting Philippine Administrative
System
III.  Sources of Power
IV.  Desirable Characteristics
V.  Legal Bases
VI.  Structures and Functions
VII.  Focal Points Under E.O. 292
VIII.  Roles of Stakeholders
IX.  Dynamics, Issues and Challenges of Practice
 PREMISE

If we want a government that is responsive to meet the

challenges of the Fourth Industrial Revolution Era
(FiRe 4.0) then it must have a civil service system that
promotes innovation and agility.

But equally important it must have robust structures

and streamlined processes and procedures with the use
of foresight thru Futures Thinking responsive to the
needs of the Filipino people.
RELEVANT QUESTIONS

§  What is public administration?

§  Why public administration?

§  How it differs from private administration?

§  Is there a Philippine public administration?

§  For whom is public administration?

CORE SUBJECTS IN
PUBLIC ADMINISTRATION

§  THEORIES ON PUBLIC ADMINISTRATION

§  PHILIPPINE ADMINISTRATIVE SYSTEM

§  LOCAL GOVERNMENT

§  FISCAL MANAGEMENT

§  POLICY ANALYSIS

§  ETHICS AND ACCOUNTABILITY

 Figure 1. Governance Reform Framework (Brillantes and Perante-
Calina 2018)
Communication
WHOLE OF
NATION
Bayanihan INSTITUTIONS APPROACH
Balikatan Political / Administrative
Vertical and horizontal
Efficiency, Effectiveness, Economy
Ethics, Equity & Accountability (5Es + 1A) governance
Malasakit
(inter-governmental
Galang VISION and inter and intra
SDGs sectoral governance)
Mindsets Ambisyon Natin Citizen
Ugnayan Behavior 2040 Continuous
Engagement
Paradigms cooperation and
Pananagutan
Leadership collaboration

Phronetic

GLOCALIZATION COOPETITION
 QBQ

WHAT IS THE RELEVANCE OF STUDYING PUBLIC

ADMINISTRATION AS A FIELD OF STUDY AND AS A

PRACTICE?
PHILIPPINE ADMINISTRATIVE SYSTEM
AS DEFINED

A network of public organizations with specific goals,

policies, structures, resources, and programs.
Continuation PHILIPPINE ADMINISTRATIVE SYSTEM AS
DEFINED

As a network of public organizations, it is

§  Created by law

§  Defines purpose, core structure, functions to

undertake

§  How operations are funded by public funds?

§  Implement programs
Continuation PHILIPPINE ADMINISTRATIVE SYSTEM AS
DEFINED

It includes the internal processes of, and the inter-

action between and among, public organizations which
are constituted to implement, help formulate, monitor,
or assess public policies.


Continuation PHILIPPINE ADMINISTRATIVE SYSTEM AS
DEFINED

Internal processes of, and the inter-active efforts

§  Perform functions through defined rules and

procedures
§  Designed to establish the best way to provide
service
§  Rules and procedures that govern their working
relationships with other government offices

e.g. Department of Budget

Continuation PHILIPPINE ADMINISTRATIVE SYSTEM AS
DEFINED

§  This system cover the relationship with its immediate

public-in-contact as well as their PAS reactions to, or
how it is affected by, the greater socio-politico and
economic environment within which it operates.

Continuation PHILIPPINE ADMINISTRATIVE SYSTEM AS
DEFINED

•  Implement, formulate and assess public policies

•  Sound policies

•  Day to day operations, laws are tested

•  Monitor/assess policies
•  e.g. Annual reports , evaluation, who benefited
from these projects, relate benefits to cost,
discuss problems and possible solutions
 FIVE ELEMENTS CONSTITUTING
PHILIPPINE ADMINISTRATIVE SYSTEM

Public organizations

Internal processes and interactive efforts

Implementing, help, formulating, and assessing public

policies

Individuals, groups, organization, and communities as its

public/clientele

The greater socio-politico and economic environment

 SOURCES OF POWER OF THE PAS

Its being an arm of the government

Its being an enforcer and implementer of public policy

Its operation as a service delivery system

Its role as a participant in the policy formulation process

Its technical expertise; and

Its extensive and nationwide presence at all levels of

government
1.  The PAS as Instrument of the State

The public bureaucracy derives its administrative power

from its being an arm of the State.

The PAS is in effect the machinery through which the

functions of government are exercised legitimately
throughout the country.

It is supported by enabling state policies which confer

authority on its action.

Alfiler 1999:73
Continuation…1. The PAS as Instrument of the State

FUNDAMENTAL/INHERENT POWERS OF
THE STATE

§  Police Power

§  Power of Eminent Domain

§  Power of Taxation

Nachura 2006:42
Continuation…1. The PAS as Instrument of the State

POLICE POWER as DEFINED

The power of promoting public welfare by restraining and

regulating the use of liberty and property.

Nachura 2006:43
Continuation…1. The PAS as Instrument of the State

SCOPE/CHARACTERISTICS

Most pervasive, the least limitable, and the most demanding of the
three powers

Salus populi est suprema lex

(The will of the people is the supreme law)

WHO MAY EXERCISE THE POWER

Inherently vested in the legislature

Congress may delegate to the President, Administrative Bodies

and Law Making Bodies of LGUs
Nachura 2006:43
 Continuation…1. The PAS as Instrument of the State

POWER OF EMINENT as DEFINED

(Power of Expropriation)

Private property shall not be taken for public use without just
compensation (1987 Philippine Constitution, Article 3, section 9)
See also Article XII, Section 18 & Article XIII, Sections 4 & 9

WHO MAY EXERCISE THE POWER

Inherently vested in the legislature

Congress may delegate to the President, Administrative Bodies and

Law Making Bodies of LGUs

Nachura 2006:49
Continuation…1. The PAS as Instrument of the State

POWER OF TAXATION as DEFINED

With the legislature primarily lies the discretion to

determine the nature, object, extent, coverage and situs of
taxation (Tan vs Del Rosario, 237 SCRA 324)

WHO MAY EXERCISE THE POWER

Inherently vested in the legislature

Congress may delegate to the president, administrative bodies

and law making bodies of lgus

Nachura 2006:49
Continuation…1. The PAS as Instrument of the State

What are the SIMILARITIES of the three Fundamental/

Inherent Powers of the State?

§  Police Power

§  Power of Eminent Domain

§  Power of Taxation
Continuation…1. The PAS as Instrument of the State

SIMILARITIES fundamental/Inherent Powers of the State

§  Inherent in the state, exercised even without need of express

Constitutional grant

§  Necessary and indispensable; state cannot be effective without

them

§  Methods by which state interferes with private property

§  Presuppose equivalent compensation

§  Exercised primarily by the legislature

Nachura 2006:42
Continuation…1. The PAS as Instrument of the State

What are the DISTINCTIONS of the three

Fundamental/Inherent Powers of the State?

§  Police Power

§  Power of Eminent Domain

§  Power of Taxation
Continuation…1. The PAS as Instrument of the State

DISTINCTIONS

§  Police power regulates both liberty and property; eminent

domain and taxation affect only property rights

§  Police power and taxation are exercised only by government;

eminent domain may be exercised by private entities

§  Property taken in police power usually noxious or intended for

a noxious purpose and may thus be destroyed; while in eminent
domain and taxation, the property is wholesome and devoted to
public use or purpose

Nachura 2006:42
 Continuation…1. The PAS as Instrument of the State

DISTINCTIONS

² Compensation in police power is the intangible, altruistic

feeling that the individual has attributed to the public good

² In eminent domain, it is full and fair equivalent of the

property taken

² In taxation, it is the protection given and/or public

improvements instituted by government for the taxes paid.

Nachura 2006:42
2. The PAS as Enforcer and Implementor of
Public Policy
The PAS enforces the laws and implements other public policies
set by the executive and the legislative branches of government.

Most laws stipulate how they are to be enforced, specify sanctions,

and even establish behavioural norms that must be observed by
enforcers.

In instances where new programs are authorized, the source and

amount of funds, as well as other logistics for program activities are
also provided.

Alfiler 1999:73
3. The PAS as a Service Delivery System
The PAS is also a major service delivery system.

As such, it utilizes its authority, structure, and resource to produce

specific services that it extends to a clientele group.

Examples: public school system, public health system, post office

etc.

Through its network of public organizations operating in various

areas and levels of government, the PAS provides a wide array of
services.

In most instances, the services that government provides may also

be available in the market for a higher cost.
Alfiler 1999:73
4. The PAS as Participant in the Policy
Formulation Process

The participation of the PAS in the policy formulation process

stems largely from its role as enforcer and implementor and its
technical expertise on certain topics

The PAS’s responsibility to monitor and assess the

effectiveness of new programs authorized by law gives it
official mandate to report on how the implementation of these
laws will have fulfilled the objectives they sought to achieve.

Alfiler 1999:73
5. Technical Expertise of the PAS

Another source of power of the PAS is the accumulated

technical expertise that it has amassed over time as it deals
with the myriad and complex issues that government must
address.

Most civil servants in the Philippine bureaucracy were

hired for their professional training in their respective
areas of competence.

Alfiler 1999:73
6. Nationwide Presence of the PAS

Finally, the PAS’s vast network reaching almost all village

nationwide is another source of its power.

The public bureaucracy has an expansive reach through which it

can mobilize support for its programs from all over the country.

This network also provides the PAS with a wide base for its
operations that can be utilized for any inter-agency effort.

Having offices, human resources, and other logistics that it can

easily mobilize is another source of the power of the PAS.

Alfiler 1999:73
DESIRABLE CHARACTERISTICS OF THE PAS
PAS IS JUST AND FAIR ENFORCEMENT BODY

PAS IS PARTICIPATORY AND CONSULTATIVE

PAS IS ACCESIBLE IF IT IDENTIFIES AND

MINIMIZES ACCESS PROBLEMS

PAS FAVORS DECENTRALIZATION

PAS IS EFFICIENT

PAS IS ACCOUNTABLE

PAS PROMOTES THE CAUSE OF EQUITY

Alfiler 1999:73
EQUALITY versus EQUITY

https://artplusmarketing.com/equality-equity-freedom-55a1d675b5d8
 LEGAL BASES OF PAS

§  1987 PHILIPPINE CONSTITUTION

§  EXECUTIVE ORDER NO. 292

INSTITUTING THE “ADMINISTRATIVE
CODE OF 1987”
FOCAL POINTS UNDER E.O. 292

The first Administrative Code was forged in 1917 when the

relationship between the people and the government was
defined by the colonial order then prevailing;

The Administrative Code was enacted to enhance the

effectiveness of the Government by incorporating in a unified
document the major structural, functional and procedural
principles and rules of governance; and
FOCAL POINTS UNDER E.O. 292

The Administrative Code will be of optimum benefit to the

people and Government officers and employees as it embodies
changes in administrative structures and procedures designed to
serve the people;

Administrative Code lays down the fundamental structures and

functions of the departments in the Executive Branch, the
Constitutional Commissions, and other major government
offices.
ALFILER 1999:87
 COMPONENTS OF AN ENABLING PAS
1.  PEOPLE – ULTIMATE SOURCE OF POWER

2.  PAS – AUTHORIZE TO ACT FOR AND IN BEHALF OF

THE STATE

3.  EMPOWERMENT PROCESS

-  PAS LEVEL WHEN IT COMPLIES WITH THE DESIRED PROCESS

PROVIDED FOR IN THE FRAMEWORK

-  TRIGGERED AT THE COMMUNITY LEVEL WHEN PAS

UTILIZES THE CBX APPROACH TO HELP COMMUNITIES
ORGANIZE AND INSTITUTE WAYS OF MANAGING THEIR
RESPONSES TO THEIR LOCAL PROBLEMS

ALFILER 1999:90-91
 COMPONENTS OF AN ENABLING PAS

4. COMMUNITIES – PAS PARTNER, EFFECTIVELY

WHEN THEY ARE PREPARED FOR THEIR ROLES

5. EXTERNAL ENVIRONMENT – CONSISTS OF

INTERESTS AND PRESSURE GROUPS THAT ARE
LIKELY TO ASK THE STATE FOR SERVICES,
INFORMATION, OR THE ENFORCEMENT OF
EXISTING LAWS

ALFILER 1999:90-91
https://pia.gov.ph/branches-of-govt
http://op-proper.gov.ph/organizational-chart/
 Structures and Functions of the PAS
National Government – refers to the entire machinery of the
central government, as distinguished from the different forms of
local governments

Local Government – refers to the political subdivisions established

by or in accordance with the Constitution (Article X of the 1987
Constitution)

National Agency – refers to a unit of the National Government

Local Agency – refers to a local government or a distinct unit

therein
Structures and Functions of the PAS
Department – refers to an executive department created by law.
For purposes of Book IV, this shall include any instrumentality, as
herein defined, having or assigned the rank of a department,
regardless of its name or designation.

Bureau – refers to any principal subdivision or unit of any

department. For purposes of Book IV, this shall include any
principal subdivision or unit of any instrumentality given or
assigned the rank of a bureau, regardless of actual name or
designation as in the case of department-wide regional offices.
Structures and Functions of the PAS
Regulatory agency – refers to any agency expressly vested with
jurisdiction to regulate, administer, or adjudicate matters affecting
substantial rights and interest of private persons, the principal
powers of which are exercised by a collective body such as a
commission, board, or council.

Chartered institution – refers to any agency organized or operating

under a special charter, and vested by law with functions relating to
specific constitutional policies or objectives. This term includes the
state universities and colleges, and the monetary authority of the
State.
Structures and Functions of the PAS
Government owned and controlled corporation

•  organized as a stock or non-stock corporation,

•  vested with functions relating to public needs
•  whether governmental or proprietary in nature, and owned by
the Government directly or through its instrumentalities either
wholly, or, where applicable as the case or stock corporations, to
the extent of at least 51% of its capital stock:

Provided, that GOCCs may be further categorized by the

Department of Budget and Management, the Civil Service
Commission, and the Commission on Audit for purposes of the
exercised and discharge of their respective powers, functions, and
responsibilities with respect to such corporations.
Structures and Functions of the PAS
Instrumentality – any agency of the National Government
not integrated within the department framework vested with
special functions or jurisdiction by law, endowed with some if
not all corporate powers, administering special funds and
enjoying operational autonomy, usually through a charter.

This term includes regulatory agencies, chartered institutions

and government owned and controlled corporations (EO 292,
pp. 2-3)
TYPES OF INSTITUTIONS WITHIN PAS

Constitutional Bodies – institutions whose existence are

specifically provided for in the 1987 Constitution. The three
constitutional commissions are the Civil Service
Commission, Commission on Audit, Commission on
Elections. The Commission on Human Rights and the office
of the Ombudsman are considered as constitutionally-
mandated special bodies.

Executive Departments – created by law to fulfill certain

functions. There are currently 19 departments. These are
clustered by sector
 TYPES OF INSTITUTIONS WITHIN
PAS

1. General Government Sector – Department of Foreign Affairs,

Department of Finance, Department of Budget and Management,
National Economic and Development Authority and Office of the
Press Secretary

2. Agriculture, Agrarian Reform and Environment Sector –

Department of Agrarian Reform, Department of Agriculture, and
Department of Environment and Natural Resources

3. Trade and Industry Sector – Department of Trade and

Industry and Department of Tourism
TYPES OF INSTITUTIONS WIHIN PAS

4. Energy and Infrastructure Sector – Department of Energy,

Department of Public Works and Highways, Department of
Transportation.

5. Education, Culture and Manpower Development Sector –

Department of Education, Culture and Sports, Department of
Labor and Employment, and State Universities and Colleges .

6. Health and Social Welfare Sector – Department of Health and

Department of Social Welfare and Development
TYPES OF INSTITUTIONS WIHIN PAS

4. Energy and Infrastructure Sector – Department of Energy,

Department of Public Works and Highways, Department of
Transportation.

5. Education, Culture and Manpower Development Sector –

Department of Education, Culture and Sports, Department of
Labor and Employment, and State Universities and Colleges .

6. Health and Social Welfare Sector – Department of Health and

Department of Social Welfare and Development
TYPES OF INSTITUTIONS WIHIN PAS

Government Owned and Controlled Corporations (GOCC) –

Development Bank of the Philippines or the Land Bank of the
Philippines, Development Academy of the Philippines, and
among others.

Republic Act No. 10149 – An Act to Promote Financial Viability

and Fiscal Discipline in Government-owned or -Controlled
Corporations and to Strengthen the Role of the State in its
Governance and Management to Make them More Responsive to
the Needs of Public Interest and for other Purposes

“GOCC Governance Act of 2011”

TYPES OF INSTITUTIONS WIHIN PAS

Chartered Institution – State universities and colleges, e.g.

University of the Philippines

Local government units – BARMM, province, city,

municipality, and barangay
GENERAL FEATURES OF A DEPARTMENT

a.  It is mandated to perform a specific function for the

executive branch, i.e. health, foreign affairs, labor and
employment, etc.

b.  It is headed by a Department Secretary, who is to be

assisted by Undersecretaries and Assistant Secretaries
GENERAL FEATURES OF A DEPARTMENT
c. It may have the following organization units:

Support services, (i.e., planning service, financial and management

services, administrative service, technical service and legal service),
bureaus (staff or line), and field offices.

Staff bureaus perform policy, program development, and advisory

functions.

Line bureaus directly implement programs in accordance with

department policies and plans.

d. A line department may also have jurisdiction over regulatory

agencies and government owned or controlled corporations.
SAQ
Identify the following agencies belonging to the following
categories of institutions under PAS.

You may use the following codes for these categories:

Constitutional Body (CB), Department (D), Staff
Bureau (SB), Line Bureau (LB), Regulatory Agency
(RA), Chartered Institution (CI), Government Owned
and Controlled Corporation (GOCC), and Local
Government Unit (LGU).
WORKSHOP 1

1.  Department of Interior and Local

Government
1.  D
2.  Fertilizer and Pesticide Authority
2.  GOCC
3.  Bureau of Treasury
3.  LB
4.  National Parks and Development
4.  GOCC
Corporation
5.  CB
5.  Commission on Election
6.  RA
6.  Videogram Regulatory Board
7.  CI
7.  University of the Philippines
8.  LGU
8.  City of Quezon
9.  GOCC
9.  Ninoy Aquino International Airport
10.  GOCC
10.  Development Academy of the
Philippines
 NATURE OF ADMINISTRATIVE
RELATIONSHIPS AMONG AGENCIES

A government office may be under

Supervision and control

Administrative supervision of a higher officer, or

it may be an agency “attached” to a department

NATURE OF ADMINISTRATIVE RELATIONSHIPS AMONG
AGENCIES: SUPERVISION AND CONTROL
When an office is under the “supervision and control” of another,
it mean the higher level office:

Has authority to act directly, whenever the specific function is

entrusted by law or regulation to a subordinate;

Directs the performance of duty;

Restrains the commission of act;

Reviews, approves, reverse or modifies acts or decisions of

subordinate officials or units

Determines priorities in the execution of plans and programs; and

Prescribes standards, guidelines plans and programs

NATURE OF ADMINISTRATIVE RELATIONSHIPS AMONG
AGENCIES: ADMINISTRATIVE SUPERVISION
Administrative relationship usually exists between a department or
its equivalent and regulatory agencies or other agencies as may be
provided by law. It is limited to the authority of the department or
its equivalent generally.

Oversee the operations of such agencies and to insure that they

are managed effectively, efficiently, and economically but without
interference with day to day activities;

Require submission of reports and cause the conduct of

management audit, performance evaluation, and inspection to
determine compliance with policies, standards, and guidelines of
the department;
NATURE OF ADMINISTRATIVE RELATIONSHIPS AMONG
AGENCIES: ADMINISTRATIVE SUPERVISION

Take action as may be necessary for the proper performance of

official functions, including rectification of violations, abuses and
other forms of administration; and

Review and pass upon budget proposal of such agencies but may
not increase or add to them (Administrative Code, p. 46).
NATURE OF ADMINISTRATIVE RELATIONSHIPS AMONG
AGENCIES: ADMINISTRATIVE SUPERVISION

What aspects are not covered by

Administrative Supervision?
NATURE OF ADMINISTRATIVE RELATIONSHIPS AMONG
AGENCIES: ADMINISTRATIVE SUPERVISION

An agency exercising administrative supervision over a

regulatory agency does not have authority to

Review decisions related to appointments and other

personal actions,

Review contracts entered into by the agency in pursuit

of its objectives

Review, reverse, revise, or modify the decisions of

regulatory agencies in the exercise of their regulatory or
quasi-judicial functions
WORKSHOP 2

Identify the type of relationship which allows a unit to do

each item. Use

ü  SC for Supervision and Control

ü  AS for Administrative Supervision, and

ü  A for Attachment
WORKSHOP 2

SITUATION ANSWER
Review, approve, reverse, modify acts and decisions
of subordinate officials or units and determine
priorities in the execution of plans and programs; and
prescribe standards, guidelines, plans and programs
To review the budget proposals of such agencies, but
may not increase or add to them
Coordinate policies and programs
Prescribe standards, guidelines, plans and programs.
Require submission of reports.
ANSWER TO WORKSHOP 2

SITUATION ANSWER
Review, approve, reverse, modify acts and decisions SC
of subordinate officials or units and determine
priorities in the execution of plans and programs; and
prescribe standards, guidelines, plans and programs
To review the budget proposals of such agencies, but AS
may not increase or add to them
Coordinate policies and programs A
Prescribe standards, guidelines, plans and programs. SC
Require submission of reports. AS
CHANGING THE PAS STRUCTURE THROUGH
GOVERNMENT-WIDE REORGANIZATIONS

Reorganization – changes in the structure of the PAS

occur incrementally or are introduced in a more
systematic manner through government-wide
reorganizations.

Government reorganizations are deliberately planned

efforts to systematically alter the existing organizations
structure usually for the purpose of achieving government
objectives with more economy, efficiency, and
effectiveness.
CHANGING THE PAS STRUCTURE THROUGH
GOVERNMENT-WIDE REORGANIZATIONS

It is usually undertaken once a new government

assumes power.

This is usually done to signal the new directions that

the new administration would wants to take.
CHANGING THE PAS STRUCTURE THROUGH
GOVERNMENT-WIDE REORGANIZATIONS
Planning, Getting Legislative Approval, and
Implementation
Who takes the initiative for the reorganization?

What is the legal basis for the reorganization?

The goals of the reorganization project

Who has the power to reorganize and what parts of the

national government structure would be covered; and

The role of the legislative branch in the approval or adoption

of the reorganization plan
 PUBLIC SECTOR REFORMS,
REORGANIZATION AND
PRESIDENTIAL LEADERSHIP
 PUBLIC SECTOR REFORMS,
REORGANIZATION AND
PRESIDENTIAL LEADERSHIP

‘streamlining’, ‘re-engineering’, ‘reinventing’, ‘rationalizing’

and ‘right sizing’ the government.

New Public Management (NPM)

 PRESIDENT CORAZON AQUINO (1986-1992)
Executive Order No. 5 - Presidential Commission on
Government Reorganization (PCGR)

Fundamental Philosophies of Governance

q promoting private initiative

q decentralization
q cost-effectiveness
q efficiency of frontline services
q accountability

http://staging.justpayroll.ph/power-to-the-people-the-edsa-revolution-and-
the-start-of-the-fifth-philippine-republic/
 PRESIDENT FIDEL V. RAMOS (1992-1998)

Executive Order No. 149 – Streamlining of the Office of

the President

Fundamental Philosophies of Governance

q Economic Growth
q Social Equity
q National Solidarity
q Unity
 PRESIDENT JOSEPH E. ESTRADA (1998-2001)

Executive Order No. 165 - Re-Engineering the

Bureaucracy for Better Governance Program

Fundamental Philosophies of Governance

q Efficiency
q Innovation
q Effective Governance
q Sustainable Socio-Economic Growth
 PRESIDENT GLORIA MACAPAGAL-ARROYO
(2001-2010)
Executive Order No. 366 - Rationalization Plan

Fundamental Philosophies of Governance

q Efficiency

q Effectiveness
 PRESIDENT BENIGNO AQUINO III (2010-2016)

Executive Order No. 18 - Rationalizing the Office of the

President

Fundamental Philosophies of Governance

q Economy
q Efficiency
q Effectiveness
q Transparency
 PRESIDENT RODRIGO DUTERTE (2016-
PRESENT)
Executive Order No. 1 - Re-engineering the Office of the
President

Fundamental Philosophies of Governance

q Greater Responsiveness to the Attainment of

Development Goals

q The need to ‘right size’ the bureaucracy

 PRESIDENTIAL REFORM
INITIATIVES
q Manifestation of a strong leadership in the
executive department

q Playing a significant role in effecting institutional

arrangement of reform programs

q As the top policy initiator and maker, the president

q Executive department has the crucial role in

steering reforms.
History of reorganization in the Philippine politico-administrative
system within the context of public sector reform and leadership.
PHILIPPINE POLITICO-ADMINISTRATIVE
HISTORY REORGANIZATION

Public sector reform (PSR) has always been a primary

concern for every administration in the Philippines

Manuel Quezon
(the first Filipino to head a
government of the entire Philippines President Rodrigo
between 1935 and 1944)
Duterte
PHILIPPINE POLITICO-ADMINISTRATIVE
HISTORY REORGANIZATION

General goal is to streamline the bureaucracy and to

respond promptly and implement administrative
reforms to address corruption and inefficiency in the
delivery of government services.
PHILIPPINE POLITICO-ADMINISTRATIVE
HISTORY REORGANIZATION

A major leadership challenge has been sustaining

avowed public sector reforms largely because of
changes in administration and a Filipino tendency
referred to as ‘ningas kugon’.
 WHAT IS PUBLIC SECTOR
REFORM?

Public sector reform

a mechanism that introduces innovations in public

management to induce modification, transformation,
change and reforms in several aspects.
 WHAT IS PUBLIC SECTOR
REFORM?
Reforms vary

size reduction of public sector personnel

streamlining of business processes

curbing bureaucratic red tape and corruption

decentralization

fiscal and economic reforms and

performance management
 TWO MAJOR AREAS TO
MAKE REFORMS HAPPEN

Decentralization and local governance, and

Reorganization and civil service reform.

THE CONTENTION
Reforms can happen in the following ten areas:
Decentralization and Local Governance

Financial resource and reforming the transfers to local governments;

Inter-local cooperation and inter-LGU alliances;
Clarification of local government powers and functions;
Local personnel administration;
National-local relations;
Local government performance measurement;
Capacity building;
People participation;
Political concerns; and
Federalism.
THE CONTENTION
Six Reform Areas in the Civil Service

Training and development and rebranding the public sector’s HRM
functions;
Recruitment, selection and promotion;

Government salary compensation and position classification;

Accountability and corruption;

E-government; and

Removing red tape through the Citizen’s Charter, which is

considered an innovation in service delivery
 LANDMARK POLICY REFORMS

q 1987 Philippine Constitution

q Administrative Code of 1987 (Executive Order (EO)

No. 292).

q Republic Act 7160 or known as the Local Government

Code (LGC) of the Philippines in 1991.

 LANDMARK POLICY REFORMS

Looking back, 1986 stands as a watershed in the

Philippine history:

It was the year when the Filipino people regained their

freedom from almost two decades of Marcos’ dictatorship
and the restoration of formal structures and processes of a
democratic (‘post dictatorship’) government.

Dynamics, Issues and
Challenges of Practice
 PH public sector hounded by issues and
challenges in governance

Bureaupathology is concerned with the

dysfunctional and irrational aspects of
bureaucracy, and can be defined as
the set of problems that arise from
exaggerated bureaucratic controls.

Elements of bureaupathology include routinization, reliance on regulations and resistance to organizational

changes.. The term was apparently coined by Victor Thompson (1960)
(see https://everything2.com/ title/bureaupathology; https://clarotesting.wordpress.com/tag/
bureaupathology-the- denigration-of-competence-edward-j-giblin/).

Brillantes and Perante-Calina 2018

 Common Bureaupathologies from A-Z
CAIDEN 1991
Abuse of Authority/
power/position Carelessness
Account Padding Chiseling
Alienation Coercion
Anoxeria Complacency
Arbitrarines Compulsiveness
Arrogance Conflict of Interest/Objectives
Bias Confusion
Blurring issues Conspiracy
Boondoggles Corruption
Bribery Counter-productiveness
Bureaucratese Cowardice
(unintelligibility) Criminality
Busywork
 Common Bureaupathologies from A-Z
Empire-building
Deadwood Excessive social costs/
Deceit and deception complexity
Dedication to status quo Exploitation
Defective goods Extortion
Delay Extravagance
Deterioration Failure to acknowledge/act/
Discourtesy answer/respond
Discrimination Favoritism
Diseconomies of size Fear of change, innovation, risk
Displacement of goals/ Finagling
objectives Footdragging
Dogmatism Framing
Dramaturgy Fraud
Fudging/fuzzing issues
 Common Bureaupathologies from A-Z

Gamesmanship
Gattopardismo (superficiality)
Ghost employees
Gobbledygood/jargon
Highhandedness
 Common Bureaupathologies from A-Z
Indecision (decidophobla)
Ignorance
Indifference
Illegality
Indiscipline
Impervious to criticism/
Ineffectiveness
suggestion
Ineptitude
Improper motivation
Inertia
Inability to learn
Inferior quality
Inaccessibility
Inflexibility
Inaction
Inhumanity
Inadequate rewards and
Injustice
incentives
Insensitivity
Inadequate working
Insolence
conditions
Intimidation
Inappropriateness
Irregularity
Incompatible tasks
Irrelevance
Incompetence
Irresolution
Inconvenience
Irresponsibility
 Common Bureaupathologies from A-Z

Kleptocracy Malfeasance
Lack of Commitment Malice
Lack of Coordination Malignity
Lack of creativity/ Meaningless/make work
experimentation Mediocrity
Lack of credibility Mellownizaton
Lack initiative Mindless job performance
Lack of imagination Miscommunication
Lack of performance Misconduct
indicators Misfeasance
Lack of vision Misinformation
Lawlessness Misconduct
Laxity Misplaced zeal
Leadership vacuums
 Common Bureaupathologies from A-Z
Nepotism
Negligence/neglect Paperasserie
Neuroticism Paranoia
Nonaccountability Patronage
Noncommunication Payoffs and kickbacks
Nonfeasance Perversity
Nonproductivity Phony contracts
Obscurity Pointless activity
Obstruction Procrastination
Officiousness Punitive supervision
Oppression
Overkill
Oversight
Overspread
Overstaffing
 Common Bureaupathologies from A-Z
Red tape Slick bookkeeping
Reluctance to delegate Sloppiness
Social astigmatism (failure to see
Reluctance to take problems
decisions Soul-destroying work
Reluctance to take Spendthrift
responsibility Spoils
Remoteness Stagnation
Stalling
Rigidity/brittleness Stonewalling
Rip-offs Suboptimization
Ritualism Sycophancy
Rudeness Tail-chasing
Sabotage Tampering
Territorial imperative
Scams Theft
Secrecy Tokenism
Self-perpetuation Tunnel vision
Self-serving
 Common Bureaupathologies from A-Z
Unclear objectives
Unfairness
Unnecessary work
Unprofessional conduct
Unreasonableness
Unsafe conditions
Unsuitable premises and equipment
Usurpatory
Vanity
Vested interest
Vindictiveness
Waste
Whim
Xenophobia
 Common Bureaupathologies

ic i en t a n d
Ineff
r o d u c tiv e
unp

Cyberloafing or cyberslacking –
employees using organizational computer tablets, and
smart phones for nonproductive activities like surfing
the web for personal information, playing games,
posting FB messages, or shopping and chatting online
(cited by Abdulrauf 2017). http://4.bp.blogspot.com/-y13IIBnQkZE/TqTYuAUsY9I/
AAAAAAAAC_8/8mRSaXVVbRo/w1200-h630-p-k-nu/cyber3.jpg
 KEY CONCEPTS: ACCOUNTABILITY

Accountability making civil servants answerable for their

behavior under pain of sanctions.

answerability and responsibility

Accountability also means “establishing criteria to measure

the performance of public officials as well as oversight
mechanisms to ensure that the standards are met (Waldt
2004:14)
Four standard questions central to
accountability

Who is considered accountable?

To whom is she/he accountable?

To what standards is she/he

accountable?

By what means is/she accountable?

Carino, 1993:541
Different of Levels of Accountability

Individual accountability

Accountability of administrators

Political accountability

Accountability of national leaders

Alfiler 1999:115
LEVELS OF ACCOUNTABILITY

INDIVIDUAL ACCOUNTABILITY

public employees are answerable for the

responsible, efficient, and effective performance of
their individual tasks.
LEVELS OF ACCOUNTABILITY

ACCOUNTABILITY OF ADMINISTRATORS

administrators are accountable for their

stewardship of the administrative authority, resources
and information places at their disposal as leaders of
public organization
LEVELS OF ACCOUNTABILITY

POLITICAL ACCOUNTABILITY

accountability of institutions that must answer for

their organizational mandates and functions,
particularly as they form part of the incumbent
government’s strategy for national development.
LEVELS OF ACCOUNTABILITY

ACCOUNTABILITY OF NATIONAL LEADERS

national leadership, specifically elected national

officials, must answer for their performance in
pursuing their avowed program of government and
their use of national resources, given the authority,
power and resources vested in them by their
constituency.
Accountability: Major Indicators of
Good Governance
MAJOR CHARACTERISTICS OF
GOOD GOVERNANCE

TRANSPARENCY

ACCOUNTABILITY

RESPONSIVENESS

RULE OF LAW

PARTICIPATION

www.unescap.org/sites/default/files/good-governance.pdf
Maximizing Ethics and Accountability in Decision-Making
in the Public Bureaucracy
Nature and purpose of government emphasizes why ethics and
accountability is a big deal in government:

Government plays a primary role in society; it is supposed to

orchestrate development and mediate among contending forces

Government is the most pervasive institution, being the country’s

largest employer, chief regulator, and major producer of
essential goods and services
Government corruption touches all citizens – as beneficiaries, as
source of diverted funds (as taxpayers) and as victims of the
misplaced allocation

Carino, 1990
 Accountability Mechanisms

q  1987 Philippine Constitution

q  Administrative Code of 1987 (Executive Order 292)

q  Code of Conduct and Ethical Standards for Public Officials and

Employees (Republic Act No. 6713)

q  Anti Red Tape Act of 2007 (Republic Act No. 9485), as amended
by Ease of Doing Business Act (Republic Act No. 10132)

q  An Act Prescribing the Code of the National Flag, Anthem, Motto,

Coat-of-Arms and other Heraldic Items and Devices of The
Philippines (Republic Act Number 8491)
 Malasakit, Pagbabago At Kaunlaran
“Ambisyon Natin 2040
PHILIPPINE DEVELOPMENT PLAN (2017-2022)

WHAT’S THE GOAL?

Development Thrusts

Pagbabago

Malasakit Patuloy na Pag-unlad

To enable Filipinos to attain a “matatag, maginhawa at panatag na buhay.”

http://www.neda.gov.ph/2017/02/21/neda-board-approves-philippine-development-plan-2017-2022/
 CORRUPTION AS DEFINED

C = M + D – A.
Corruption equals monopoly plus discretion minus accountability.

This suggests that decreasing either or both “Monopoly and Power”

and “Discretion” in government transactions, and/or increasing the
“Accountability” of public officials, will correspondingly reduce
“Corruption” Klitgaard (1988) cited in Ursal, 2006: 2
WORKSHOP 4 – CASE READING
 MAIN MESSAGE
Leadership and public sector reforms are two intertwined
– and inseparable – concepts.

The Philippine political administrative history has shown

that the role of leadership in public sector reform cannot
be overemphasized.

Our history has shown that no less than the country’s

chief executive – the president – has been at the tip of
the spear of public sector reforms.
 MAIN MESSAGE
. All chief executives of the country – from Roxas to
Quirino in the late 1940s and 1950s, to Macapagal and
Marcos in the 1960s and 1970s, to Aquino and Ramos
and Estrada in the 1980s and 1990s, to Macapagal-
Arroyo, Aquino and Duterte in the contemporary
Philippines –

- have put public sector reform through the

reorganization of executive branch as primordial in their
executive agenda.
 MAIN MESSAGE
Still the following questions at the back of our mind
remains:

Considering the many efforts and movements to reform

the public sector, why should we be more hopeful
whenever a new reorganization plan is initiated and
affected?
 MAIN MESSAGE

The mere fact that reorganization has been topmost in

the chief executive’s agenda suggests the following two
issues.

First, the earlier massive – and sometimes impressive –

reorganization plans have not met their declared
objectives.
 MAIN MESSAGE

Second, public sector reform is a dynamic, continuous

and live process considering the need to respond (or
react, depending on one’s perspective) to demands of a
rapidly changing environment brought about by
globalization, including global warming, global trade wars,
information technology, etc.
 MAIN MESSAGE

The reform is imperative as recognition of the intractable

and stubborn nature of the bureaucracy, considering the
entrenched nature of hierarchic bureaucratic institutions’
rules, norms and processes that are hallmarks of any
Weberian bureaucracy that by nature are resistant to
change.
 MAIN MESSAGE
Figure 1. Governance Reform Framework (Brillantes and Perante-
Calina 2018)
Communication

We have argued that INSTITUTIONS

Political / Administrative
reforms have to be Efficiency, Effectiveness, Economy
Ethics, Equity & Accountability (5Es + 1A)
multi-dimensional, VISION
going beyond Mindsets SDGs
Ambisyon Natin Citizen
Behavior
reorganization and Paradigms
2040 Engagement

s h i f t i n g Leadership
Phronetic
organizational boxes.
GLOCALIZATION COOPETITION
 MAIN MESSAGE
Some emerging lessons for scholars in leadership and
public reforms. These include the following:

q  Leadership does matter. Leadership is a critical

handle in the designing and implementation of
reforms in the public sector.

q  Practical wisdom – or grounded leadership – is

central for effective leadership. The long-term and
sometimes ideal vision must be grounded by practical
realities.
 MAIN MESSAGE
q  Leadership in the public sector must be inclusive within the
context of effecting ownership and buy in by the
stakeholders (referred to as a ‘ba’ or communities of practice
bound by a common vision of improving their sector).

q  Leaders are sensitive to the needs of their communities.

This is where they are able to articulate the essence of
relying on ‘oido’, some kind of a sixth sense that knows what
is goodness.

q  Leaders are risk-takers, not afraid to go into terra incognita,

after having made necessary analysis and weighed the
consequences, and after having counted the costs, grounded
on the pursuit of common good.
 MAIN MESSAGE
q  Leaders are political animals, as in Aristotle’s ‘political
animal’ sensitive to the realities of struggle, conflict and
debate, and compromise towards the common good.

q  Leaders develop other leaders. They mentor others.

They develop support for reforms. They are not
threatened by younger leaders who they mentor, who
will not only share the vision to pursue public sector
reforms for the common good but, more importantly,
sustain the reforms.

 MAIN MESSAGE
q  Leaders develop capacities of themselves and of others.
Leaders recognize the imperative of continuous
improvement, including their own improvement.

q  Leadership means lifelong learning.

q  However, leadership is not enough. To be sustainable,

public sector reforms driven by leaders have to be
complemented by reforms in other areas, including
institutions, structures and procedures and reforms in
behaviour and values, anchored and on a common and
vision owned by all and communicated to the people.

DYNAMIC TRIAD MODEL: THE RELENTLESS UPWARD SPIRAL OF
TACIT KNOWLEDGE, EXPLICIT KNOWLEDGE AND PHRONESIS
(Nonaka et al. 2014a)
 SIX ABILITIES of a PHRONETIC
LEADER

1) THE ABILITY TO MAKE A JUDGMENT ON ‘GOODNESS’;

2) THE ABILITY TO GRASP THE ESSENCE;

3) THE ABILITY TO CREATE THE BA;

4) THE ABILITIY TO ARTICULATE THE ESSENCE;

5) THE ABILITY TO USE POLITICAL POWER; AND

6) THE ABILITY TO FOSTER PHRONESIS IN OTHERS (HIROSE 2013).

 MAIN MESSAGE
q  Ethics is the foundation of public administration

q  Go back to the basic Filipino Values

a.  Galang
b.  Ugnayan
c.  Pananagutan
d.  Balikatan
e.  Bayanihan
f.  Malasakit
 TOP 10 SKILLS ESSENTIAL FOR PUBLIC
ADMINISTRATORS

Complex problem solving

Critical thinking
Creativity
People management
Coordinating with others
Emotional intelligence
Judgment and decision making
Service orientation
Negotiation
Cognitive flexibility
World Economic Forum (2016)  
 GLOBAL CHALLENGES OF THE 21ST
CENTURY

core competencies
digital literacy
critical thinking, and
problem solving

https://www.worldpittsburgh.org/
 TEN COMMANDMENTS
FOR GOOD PHILIPPINE PUBLIC ADMINISTRATION
1.  Give to your government the highest devotion and best services of
which you are capable.

2.  Recognize in each person you serve the dignity of man and respect his
rights

3.  Have courage to exercise authority to match your responsibility

4.  Delegate authority for detail subject to your responsibility for results.

5.  Base each decision on all the facts: your judgment can be no better
than your information

Source: Juan F. Rivera, The Congress of the Philippines, A Study of Its Functions and Powers and
Procedures (1962)
 TEN COMMANDMENTS
FOR GOOD PHILIPPINE PUBLIC ADMINISTRATION

6. If necessary to criticize, do so privately and constructively

7. Say what you mean; mean what you say

8. Make clear the line of succession; and train your successor to strive for
peaks you find difficult to attain

9. Do not allow the selfish aspects of competition to overshadow the

virtues of coordination and cooperation

10. Never be content with things as they are but always strive for their
improvement

Source: Juan F. Rivera, The Congress of the Philippines, A Study of Its Functions and Powers and
Procedures (1962)
ALL TYPES OF LEADERSHIP ASSUME
INTEGRITY
AS A REQUISITE FOUNDATION FOR
MORAL ACTION
 Maraming salamat
at
Mabuhay tayong lahat!
References
 
Alfiler, M.C.P. 1995. The Political-Administrative Accountability Continuum in the Philippine Public Service. In Carino,
L.V. (ed.). Conquering Politico-Administrative Frontiers: Essays in honor of Raul P. de Guzman, Quezon City: College of
Public Administration, University of the Philippines: 398-410.

Brillantes and Perante-Calina, Knowledge Creation in Public Administrations, Innovative Government in Southeast Asia
and Japan, “Knowledge-Based Public Sector Reform: The Philippine Experience”, Hirose Nishihara, A., Matsunaga, M.,
Nonaka, I., Yokomichi, K. (Eds.), pages 107-128, Palgrave Macmillan, Cham, Springer, ISBN No. 978-3-319-57478-3

Brillantes and Perante-Calina, Knowledge Creation in Community, Institutional Change in Southeast Asia and Japan,
“Antonio Meloto: Empowering the Filipino Poor Toward Sustainable and Innovative Communities”, Hirose
Nishihara, A., Matsunaga, M., Nonaka, I., Yokomichi, K. (Eds.), pages 107-128, Palgrave Macmillan,
Cham, Springer, ISBN No. 978-3-319-57480-6

Brillantes and Perante-Calina, "Leadership and Public Sector Reform in the Philippines" In Leadership and Public Sector
Reform in Asia, Berman, Prasjo (eds) Emerald Publishing, Published online: 29 Mar 2018; 151-178.
Permanent link to this document: https://doi.org/10.1108/S2053-769720180000030007

Carino, L.V. 1993. Administrative Accountability: A Review of the Evolution, Meaning, and Operationalization of a Key
Concept in Public Administration. In Bautista, V.A., Alfiler, M.C.P., Reyes, D.R., and P.D. Tapales (eds). Introduction
to Public Administration in the Philippines: A Reader. Quezon City: College of Public Administration, University of the
Philippines: 539-571.

Craig, Johnson. 2009. Creating an Ethical Organizational Climate, Chapter 9. Creating an Ethical Organizational Climate.
Meeting the Challenges of Leadership. CA, USA: Sage Publications

Hirose, Matsunaga, Nonaka, Yokomichi (2018). Knowledge Creation in Public Administrations, Innovative Government
in Southeast Asia and Japan, “Knowledge-Based Public Sector Reform: The Philippine Experience”, Hirose Nishihara,
A., Matsunaga, M., Nonaka, I., Yokomichi, K. (Eds.), pages 107-128, Palgrave Macmillan, Cham, Springer, ISBN No.
978-3-319-57478-3

Atienza-Salvana cited by Faina for CLCD-4L, UP-NCPAG, 2017, Lecture Presentation

Perante-Calina, Lizan E. PA 209 Ethics and Accountability, UP-NCPAG, Lecture Presentation

1987 Philippine Constitution

 
Administrative Code of 1987 (Executive Order 292)
 
Code of Conduct and Ethical Standards for Public Officials and Employees (Republic Act No. 6713)
 
Anti Red Tape Act of 2007 (Republic Act No. 9485), as amended by Ease of
Doing Business Act (Republic Act No. 10132)
 
An Act Prescribing the Code of the National Flag, Anthem, Motto, Coat-of-Arms and other Heraldic Items and Devices
of The Philippines (Republic Act Number 8491)