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PA 106 Public Personnel Administration Module No. 1

MODULE NO. 2

DEVELOPMENT AND SIGNIFICANCE OF THE CIVIL SERVICE SYSTEM

MODULE OVERVIEW

This module will explain the history and current status of merit system as practiced in the Philippine civil service.
It will also present the classification of positions as per Executive Order 292 or the Revised Administrative Code
of 1987.
MODULE LEARNING OBJECTIVES

At the end of this module, you should be able to:

1. Explain the merit system in the Philippines;
2. Trace the history of the civil service in the Philippines; and
3. Identify the composition of the Philippine civil service.
LEARNING CONTENTS:
Growth of Merit System in the Philippines

The practice of appointing people in the government based on merit and fitness is a legacy from the American
regime. It is however, important to review antecedent characteristics of the civil service in the country though
contemporary judgment says it is mainly unfair. During the Spanish regime, colonies and and anything in it are
believed to be the kin’s personal kingdoms and can be disposed in any means he desires. Public offices were
considered as grants or favors (merced) from the king. According to Bautista et al (2003), there were 2
conventional ways of disposing public offices during the Spanish regime: by appointment and by purchase. The
highest colonial positions in the country were supposed to be filled by appointment of those who have significantly
contributed in the pacification of colonies; but many actually were acquired by purchase. Due to the practice of
system of sale, incompetence of officeholders and their rapacity flourished in public offices. Organizational
inefficiency proliferated in the government. This negates the 3 Es espoused by Woodrow Wilson as ethos of
public administration which are Efficiency, Effectiveness and Economy. This inefficiency has its roots to the so
called spoils system. The spoils system is derived from the phrase “to the victor of spoils.” Spoils meant that
successful candidates are expected to distribute government jobs to campaign supporters (Lazo, R. S., 2011).

It is eventually contrasted by the kind of non-political civil service system administered by the Americans. With
the passing of Public Law No. 5 “An Act for the Establishment and Maintenance of Our Efficient and Honest Civil
Service in the Philippines Island,” efficiency, economy, merit and also political neutrality became the dominant
values in the government (Bautista et al, 2003). Merit system gives priority consideration to merit and fitness, that
is meeting the minimum qualification standards in order to competently accomplish work performances, in filling
in positions in the government. Merit and fitness shall be determined, as far as practicable, and except to positions
which are policy-determining, primarily confidential or highly technical, by competitive examination (Buendia and
Buendia, 2008).

Republic Act No. 2260 otherwise known as The Civil Service Act of 1959 provided for the creation of personnel
offices and personnel officer positions, establishment of service training programs, improved rating system and
promotion system, and identification of deeds that can be subjected to disciplinary action. (Buendia and Buendia,
2008). The Civil Service Act also supported the establishment of the Civil Service Commission, which provided
rules and regulations that promoted merit and fitness, cleansing the bureaucracy in a subtle way.

Continuous efforts and resources should still be intensified and monitored as diagnosis negating the principle of

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careerism remain. As per the report of former CSC Chair Karina David in 2001, “political influence and the spoils
system continue to hold sway in appointments to senior and other key career service positions” causing insecurity
especially during transitions of political leadership (Buendia and Buendia, 2008).

LEARNING ACTIVITY 1

Reflection Questions:
1. What is merit system? Spoils system?
2. How do the practice of merit system, and spoils system affect the operations of government offices and
the perception of people towards these effects?
3. What Filipino values can be considered as roots of these practices?

LEARNING CONTENTS:
Concept and History of the Civil Service

Civil service refers to all the men and women employees in the whole scope of bureaucracy in charged with
administrative functions to execute the delivery of goods and services to the people. It refers to the body of
employees in all branches, subdivisions and instrumentalities of the government including executive
departments, constitutional commissions, and bureaus, GOCCs, LGUs and SUCCs. IT is basically the workforce
of the state.

During the American regime on June 20, 1899, the first Philippine Commission also known as the Schurman
Commission was organized by US Pres. William McKinley. One of the objectives of the commission is to
formulate the criteria for employment of Filipinos in the government. It was continued by the second Philippine
Commission also known as Taft Commission on March 16, 1900. With the passing of Public Law No. 5 “An Act
for the Establishment and Maintenance of Our Efficient and Honest Civil Service in the Philippines Island,” a Civil
Service Board was created with 2 major functions: to conduct civil service exams and to act on appointments.
Important provisions of Public Law No. 5 also include age limit of 18-40 years old for those who enter in the
lowest grades in the service, and the ultimate classification of all positions in the service. Five years later, the
board was reorganized as Bureau of Civil Service.

In 1920, Jose Gil was the first Filipino Director of Civil Service. In 1936, the Bureau’s jurisdiction expanded from
the national government, local government and GOCCs.

Later on in 1959, RA 2260 otherwise known as Civil Service Law integrated all administrative orders relative to
government personnel administration. It has also converted the Bureau of Civil Service into Civil Service
Commission.

In 1975, PD No. 807 or the Civil Service Decree of the Philippines, redefined the role of the CSC as the central
personnel agency of the government. The commission was reorganized based from the 1987 Philippine
Constitution, wherein it shall be composed of full time chairman, and 2 full time commissioner members whose
tenures are for 7, 5 and 3 years respectively. Other requirements for those who shall serve as commissioners
include being a natural-born Filipino citizen, at least 35 years old, with proven capacity of public administration,
and must not have been candidates for any elective position simmediately preceding their appointment. The
president shall appoint the commissioners with consent from the Commission on Appointments.

As supported by Article IX-B of the 1987 Philippine Constitution, the Book V of EO No. 292 or the Administrative
Code of 1987 has classified positions in the government as career and non-career services. The Code also
recognized and reiterated the right of government employees to self-organization and collective organizations
(Lazo, R. S., 2011)

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LEARNING ACTIVITY 2

Reflection Questions:
1. What do you think were the reactions of the Filipinos and Americans with the implementation of Public
Law No. 5 requiring civil service examinations to all who wish to be part of the Philippine civil service?

LEARNING CONTENTS:
Composition of the Civil Service

The coverage of the Philippine Civil Service is explained in Executive Order 292, The Revised Administrative
Code of 1987.
Chapter 2 – Coverage of the Civil Service
Sec. 6. Scope of the Civil Service. - (1) The Civil Service embraces all branches, subdivisions,
instrumentalities, and agencies of the Government, including government-owned and controlled
corporations with original charters. (2) Positions in the Civil Service shall be classified into career service
and non-career service.

Sec. 7. Career Service. – The Career Service shall be characterized by (1) entrance based on merit
and fitness to be determined as practicable by competitive examination, or based on highly technical
qualifications; (2) opportunity for advancement to higher career positions; and (3) security of tenure.
The Career Service shall include:
(1) Open career positions, appointment to which prior qualification in an appropriate examination is
required;
(2) Closed career positions which are scientific or highly technical in nature; these include the faculty
and academic staff of state colleges and universities, and scientific and technical positions in
scientific or research institutions which shall establish and maintain their own merit systems;
(3) Positions in the Career Executive Service, namely, Undersecretary, Assistant Secretary, Bureau
Director, Assistant Bureau Director, Regional Director, Assistant Regional Director, Chief of
Department Service and other officers of equivalent rank as may be identified by the Career
Executive Service Board, all of whom are appointed by the President;
(4) Career officers other than those in the Career Executive Service, who are appointed by the
President, such as the Foreign Service Officers in the Department of Foreign Affairs;
(5) Commission officers and enlisted men of the Armed Forces which shall maintain a separate merit
system;
(6) Personnel of government-owned or controlled corporations whether performing governmental
or proprietary functions, who do not fall under the non-career service; and
(7) Permanent laborer, whether skilled, semi-skilled, or unskilled.

Sec. 8. Classes of Positions in the Career Service. — (1) Classes positions in the career service,
appointment to which requires examinations shall be grouped into three major levels as follows:
(a) The first level shall include clerical, trades, crafts, and custodial service positions which involve non-
professional or sub-professional work in a non-supervisory or supervisory capacity requiring less
than four years of collegiate studies;
(b) The second level shall include professional, technical and scientific positions which involve
professional, technical or scientific work in a non-supervisory or supervisory capacity requiring at
least four years of college work up to Division Chief level; and
(c) The third level shall cover positions in the Career Executive Service.
(2) Except as herein otherwise provided, entrance to the first two levels shall be through competitive
examinations, which shall be open to those inside and outside the service who meet the minimum
qualification requirements. Entrance to a higher level does not require previous qualification in the lower

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level. Entrance to the third level shall be prescribed by the Career Executive Service Board.
(3) Within the same level, no civil service examination shall be required for promotion to a higher position
in one or more related occupational groups. A candidate for promotion should, however, have previously
passed the examination for that level.

Sec. 9. Non-Career Service. — The Non-Career Service shall be characterized by (1) entrance on
bases other than those of the usual tests of merit and fitness utilized for the career service; and (2) tenure
which is limited to a period specified by law, or which is coterminous with that of the appointing authority
or subject to his pleasure, or which is limited to the duration of a particular project for which purpose
employment was made.
The Non-Career Service shall include:
(1) Elective officials and their personal or confidential staff;
(2) Secretaries and other officials of Cabinet rank who hold their positions at the pleasure of the
President and their personal or confidential staff(s);
(3) Chairman and members of commissions and boards with fixed terms of office and their personal
or confidential staff;
(4) Contractual personnel or those who employment in the government is in accordance with a special
contract to undertake a specific work or job, requiring special or technical skills not available in the
employing agency, to be accomplished within a specific period, which in no case shall exceed one
year, and performs or accomplishes the specific work or job, under his own responsibility with a
minimum of direction and supervision form the hiring agency; and
(5) Emergency and seasonal personnel.

LEARNING ACTIVITY 3

Reflection Questions:
1. What are the differences of career and non-career service positions in the government?
2. What are the qualifications for first level positions? Second level? Third level?

SUMMARY

Merit system has been introduced in the country during the American regime through the establishment of an
honest and efficient civil service. Spoils system has flourished in the government affecting its credibility and
integrity. The Civil Service Commission in now tasked, being the central personnel agency of the government to
promote the practice of merit and fitness. It also supervises the regulation of the different positions, mainly
classified as career and non-career services.
REFERENCES

Bautista, V. A. et al (2003). Introduction to Public Administration in the Philippines: A Reader. 2nd Ed.
Quezon City: NCPAG.

Buendia, D. P. and Buendia, D. T. (2008). Personnel Administration in the Philippine Government.

Mandaluyong City: National Book Store.

Lazo, R. S. (2011). Principles and Practices of Public Administration in the Philippines. 1st ed. Quezon
City: Rex Book Store, Inc.

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