Module 3

Bureaucracy, the Civil Service,

and Personnel Administration
TOPIC: Bureaucracy, the Civil Service, and Personnel Administration
Contents:
• Nurture and Thrust of Bureaucracy
• Weber’s Bureaucracy
• Bureaucracy as a Civil Service
• Organization of Bureaucracy
• Dynamics of Modern Bureaucracy
• Civil Service System: The Philippine Experience
• Development of Civil Service in the Philippines
• Category of Civil Service
• Positions Exempt form Examinations
• Recruitments & Appointment in Civil Service
• Remuneration
• Promotion & Performance Evaluation
• Gender & Development Center
• Personnel Training and Development
• Some Issues & Concerns in the Philippines
• Towards a Better Institution for Governance
Bureaucracy
● a system of government in which most of the important
decisions are made by state officials rather than by elected
representatives.

● form of organization defined by complexity, division of

labor, permanence, professional management, hierarchical
coordination and control, strict chain of command, and
legal authority. (Encyclopedia Britannica)
Bureaucracy
• Max Weber, a German sociologist and political economist,
defines bureaucracy as a highly structured, formalized, and
also an impersonal organization.

• Bureaucracy theory is based on strict rules and expert

authority guidance which he believed would improved the
efficiency of the organization’s performance.

• He also instituted the belief that an organization must have a

defined hierarchical structure and clear rules, regulations,
and lines of authority which govern it. Max Weber
bureaucracy ideally has the following characteristics:

Max Weber (1864-1920)

 Characteristics of Bureaucracy
1. Hierarchical Management Structure - A hierarchical
structure involving the delegation of authority from the top
to the bottom of an organization.

2. Division of Labor - An explicitly defined division of labor with

specialization and training for assigned tasks.

3. Formal Selection Process - Technical competence

members selected accordingly on the basis of training,
qualification, education etc.
 Characteristics of Bureaucracy
4. Career Orientation - Career building opportunity is offered highly.
Life long employment and adequate protection of individuals against
arbitrary dismissal is guaranteed.

5. Formal Rules and Regulations - Formal rules,

regulations, and standards governing operations of the
organization and the behaviour of its members.

6. Impersonality - Hiring and promoting people on

the basis of objective merit rather than favouritism
(on the basis of what they know, and not who they know)
 A.Advantages of Bureaucracy
1.Creativity thrives within a bureaucracy
2.Job security is provided
3.It discourages favoritism
4.A bureaucracy centralizes power
5.It encourages specialization
6.Best practices are created
7.It creates predictability (enable organization to cope
with highly complex task)
Bureaucracy in the Philippines
· Bureaucracy refers to administrative instrument or organization
which exists in each modern political community for the attainment
of the community’s social objectives (public policies).

· Broadly viewed, the bureaucracy is equivalent to the entire

governmental institution. More restrictively interpreted, the
following current usage, it refers to the civil service.
 Characteristics of Philippines Bureaucracy
Vulnerability to nepotism - Under Philippine bureaucracy substructure of small
kinship groups, members of the family groups by consanguinity, by affinity, and by
ritual kinship (or compadre) give top priority to family loyalty.
 Characteristics of Philippines Bureaucracy
Perpetuation of the spoils system - Classify service, unclassified and temporary
positions which have become convenient instruments for the practice of
nepotism, of patronage, and of influence peddling.

Spoils System a.k.a. Patronage System

 Characteristics of Philippines Bureaucracy

Apathetic public reaction of bureaucratic

misconduct - The people looked upon the
phenomenon as a concomitant result of the
increasing complexity of the government, a
method of political promises to the unemployed
and underemployed segments of the population
 Characteristics of Philippines Bureaucracy
Lack of independence from politics -
Because of the absences of “class
consciousness” and of a feeling of unity on
the part of the Filipino bureaucrats and the
stigma of post-World War II ill-repute, the
Philippine bureaucracy’s “merit system” was
easily subject to attack and tampering by
politicians. They worked through the
legislative and executive branches of the
national government.
 Characteristics of Philippines Bureaucracy
Survival of historical experience - The Philippine political bureaucracy was
administered according to a civil law system which the Spanish bureaucracy as
the scapegoat for all the weaknesses of the Philippines political bureaucracy.
There are indications, however that the weaknesses are not to be totally and
directly attributed to the Spanish government bureaucracy.
 Characteristics of Philippines Bureaucracy
Non-special typing of bureaucrats
• Philippine civil servants are not a clear-cut social class
• they have varied family backgrounds, aspirations, educational training
and work experiences.
DEVELOPMENT OF BUREAUCRATIC THOUGHTS
1. Liberal or Rational Administrative Thought
· Organizational efficiency would be achieved through professional civil service, once
that is responsive and neutral in dealing with its administrative functions.
Bureaucratization strengthens hierarchical authority since directives and commands
would be exercised from top manager rather than from the masses. In short, rational
administrative model served a highly stratified authoritarian society.

2. Conservative or Power Block Thought

• Top civil servants are conservative in the sense they
are within their elected sphere, the conscious and
unconscious allies of existing economic and social
elites.
 DEVELOPMENT OF BUREAUCRATIC THOUGHTS

3. New Right or Government Oversupply Thought

· The emergence of rational choice and public choice theory ushered in a new
understanding and concept of bureaucracy based on the sightings of the New Right
theorists. They believed that bureaucracy was simply inefficient and overly self-
serving
 BUREAUCRACY AS A CIVIL SERVICE
· Bureaucracy or the Civil Service constitutes the permanent and professional
part of the executive organ of government. It is usually described as the non-
political or politically neutral, permanent, and professionally trained civil
service.

· It runs the administration of the state according to the policies and laws of the
government political executive. Upon the qualities and efficiency of
bureaucracy depends the quality and efficiency of the state administration. It,
however, works under the leadership and control of the Political Executive.

· The terms bureaucracy, civil service, public servants, public service, civil servants,
government service, government servants, officials of government, officials,
permanent executive and non-political executive are used to describe all such persons
who carry out the day to day administration of the state. The terms Bureaucracy’ and
‘Civil Service’ are popularly used as synonyms.
 ORGANIZATION OF BUREAUCRACY
1. Department - The first important organizational units of bureaucracy or big government is the
department. A government department or ministry refers to an administrative unit over which a
minister exercises direct management control. It is usually structured as a formal hierarchy and often
established by a statue.

2. Divisions - The second organizational unit comprises the divisions, sections or bureaus into
which departments are divided. These are operating units of the department or government which
are responsible to the ministers but often with considerable autonomy in practice.

3. Non- Department Public Body - The third unit is the non-departmental public body that
“operates at one or more entities that is semi-independent from the government, in an attempt to
provide management flexibility and political independence. Sometimes called quangos or the quasi
non- governmental organizations.
 DYNAMICS OF MODERN BUREAUCRACY

The development of the modern of the organization of corporate groups in all

fields is nothing less than identical with the development and continued spread
of bureaucratic administration. This is true of church and state, of armies,
political parties, economic enterprises, organizations to promote all kinds of
causes, private associations, clubs, and many others. The development is, to
take the most striking case, the most crucial phenomenon of the modern
western state… The whole pattern of everyday life is cut to fit this framework.

—Max Weber
DEVELOPMENT OF CIVIL SERVICE IN THE PHILIPPINES
· The civil service system in the Philippines was formally established under Public Law No. 5
("An Act for the Establishment and Maintenance of Our Efficient and Honest Civil Service in
the Philippine Island") in 1900 by the Second Philippine Commission.
· A Civil Service Board was created composed of a Chairman, a Secretary and a Chief Examiner.
The Board administered civil service examinations and set standards for appointment in
government service.
· It was reorganized into a Bureau in 1905.

· In 1975, Presidential Decree No. 807 (The Civil Service Decree of the Philippines) redefined the
role of the Commission as the central personnel agency of government.
· The Code essentially reiterates existing principles and policies in the administration of the
bureaucracy and recognizes, for the first time, the right of government employees to self-
organization and collective negotiations under the framework of the 1987 Constitution.
CIVIL SERVICE SYSTEM
· The Civil Service Commission (CSC) is the central personnel agency of the Philippine
government. One of the three independent constitutional commissions with adjudicative
responsibility in the national government structure, it is also tasked to render final arbitration
on disputes and personnel actions on Civil Service matters.

· The civil service refers to the body of employees in any government including all employees of
the government general. It covers the Congress, the Judiciary, and the Executive Department.
Thus, it embraces all branches, subdivisions, instrumentalities, and agencies of the government,
including government-owned or controlled corporations with original charters. It is basically the
workforce of the state in the Philippines, the administration of civil service is provided in this
legal framework.
CIVIL SERVICE SYSTEM
Philippine Civil Service Commission Specific Functions
1. Leading and initiating the professionalization of the civil service

2. Promoting public accountability in government service

3. Adopting performance-based tenure in government

4. Implementing the integrated rewards and incentives program for

government employees.
CATEGORY OF CIVIL SERVICE
CAREER SERVICE

· Permanent laborers, whether skilled or semi-skilled or unskilled.

· Personnel or government owned or controlled corporation, whether performing

governmental or proprietary function, who do not fall under the non- career service and

· Career Executive Service, namely: department secretary, under sectary, bureau director,
assistant bureau director, regional director and other offices or ranks as identified by the
Career Executive Service board:
CATEGORY OF CIVIL SERVICE
CAREER SERVICE

· Open career positions for appointment which prior qualification in an appropriate

examination is required.

· Closed career positions which are scientific and highly technical in nature these include
the faculty members of state and colleges and universities, scientific and technical
positions among others.

· Commissioned officers and enlisted men of the Armed Forces, which shall maintain a
separate merit system.
POSITIONS EXEMPT FORM EXAMINATIONS
CAREER SERVICE

1. Bar/Board Eligibility
2. Barangay Health Worker Eligibility
3. Barangay Nutrition Scholar Eligibility
4. Barangay Official Eligibility
5. Electronic Data Processing Specialist Eligibility
6. Foreign School Honor Graduate Eligibility
7. Honor Graduate Eligibility
8. Sanggunian Member Eligibility
9. Scientific and Technological Specialist Eligibility
10. Skill Eligibility
11. Veteran Preference Rating Eligibility
RECRUITMENTS & APPOINTMENT IN CIVI SERVICE

General Policies on Appointments

-Made only according to merit and fitness
- to be determined by competitive
examinations
- this does not apply to appointments to
positions which are policy determining, primarily
confidential or highly technical
RECRUITMENTS & APPOINTMENT IN CIVI SERVICE
-Civil Service Commission – central personnel
agency

- Government agencies, LGUs – if accredited by

CSC, can do the hiring process and issue
appointments subject to approval/disapproval by
CSC
RECRUITMENTS & APPOINTMENT IN CIVI SERVICE

• Open to all qualified citizens

• Based on merit and fitness
• Eligibility either thru CSC or other government examinations; or
granted by special laws and/or CSC resolutions
• Internal hiring thru promotion, transfer, reinstatement, reemployment,
detail, or reassignment is encouraged
• Qualification standards were established for each position/salary
grade in terms of education, training and experience, civil service
eligibility, physical fitness, and other qualities required for successful
performance.
RECRUITMENTS & APPOINTMENT IN CIVI SERVICE
• Request for filling up of the position – Department/Section/Unit head
• Publication – newspaper of general circulation;
• Posting – bulletin board
• Submission of documentary requirements
• Initial interview and verification of qualification/fitness to the position applied for
• Interview by the members of Personnel Selection Board
• Deliberation by the Personnel Selection Board
• Submission of the Recommendation of the PSB to the Appointing Authority
• Issuance of the Appointment if not department head position
• Approval of the appointment by the CSC Request for filling up of the position –
Department/Section/Unit head
• Publication – newspaper of general circulation;
• Posting – bulletin board
• Submission of documentary requirements
• Initial interview and verification of qualification/fitness to the position applied for
• Interview by the members of Personnel Selection Board
• Deliberation by the Personnel Selection Board
• Submission of the Recommendation of the PSB to the Appointing Authority
• Issuance of the Appointment if not department head position
REMUNERATION

•The Compensation Plan (CP) under RA No. 6758 is an orderly

scheme for determining rates of compensation of government
personnel. It was crafted to attract, motivate and retain good and
qualified people to accomplish the Philippine Government’s mission
and mandates, to encourage personal and career growth, and to reward
good performance and length of service. To achieve these goals,
the CP has a mix of compensation components, namely; basic pay or
salaries, fringe benefits, incentives and non-financial rewards which
provide reasonable levels of compensation packages within existing
government resources, and are administered equitably and fairly.
 PROMOTION & PERFORMANCE EVALUATION

There shall be established a performance evaluation system, which shall be administered in

accordance with rules and regulations and standards, promulgated by the Commission for all officers
and employees in the career service. Such performance evaluation system shall be administered in
such manner as to continually foster the improvement of individual employee efficiency and
organizational effectiveness.

- Each department or agency may, after consultation with the Commission, establish
and use one or more performance evaluation plans appropriate to the various groups of positions in
the department or agency concerned. No performance evaluation shall be given, or used as a basis for
personnel action, except under an approved performance evaluation plan: Provided, That each
employee shall be informed periodically by his supervisor of his performance evaluation. (Section 33,
Book V, E.O. 292)
 PROMOTION & PERFORMANCE EVALUATION

Performance Evaluation System Designed and administered to:

•Continuously foster improvement of employee performance and
efficiency;
• Enhance organizational effectiveness and productivity;
• Provide an objective performance rating which shall serve as basis for
incentives and rewards, promotion, training and development, personnel
actions and administrative sanctions. (Section 2, Omnibus Civil Service
Rules and Regulations)
 GENDER & DEVELOPMENT CENTER

Gender and Development - refers to the development perspective and

process that are participatory and empowering, equitable, sustainable,
free from violence, respectful of human rights, supportive of self-
determination and actualization of human potentials.

Magna Carta of Women (R.A. No. 9710) - is comprehensive women’s

human rights law that seeks to eliminate discrimination against women by
recognizing, protecting, fulfilling and promoting the rights of Filipino
women, especially those in marginalized sector.
 GENDER & DEVELOPMENT CENTER

The 1987 Philippine Constitution states 3 prominent provisions:

(1) The Declaration of Principles Article II Section 14 asserted that: “The State recognizes
the role of women in nation-building and shall ensure the fundamental equality
before the law of women and men.”
(2) Article XIII, Section 14: “The State shall protect working women by providing safe and
healthful working conditions, taking into account their maternal functions, and such
facilities and opportunities that will enhance their welfare and enable them to realize their full
potential in the service of the nation.”
(3) Article XIII, Section 11: “The state shall adopt an integrated and comprehensive approach
to health development which shall endeavor to make essential goods, health and other social
services available to all the people at affordable cost. There shall be priority for the needs of
the underprivileged, sick, elderly, disabled, women and children. The state shall endeavor to provide
free medical care to paupers.”
 PERSONNEL TRAINING & DEVELOPMENT

Rule VII of the Omnibus Rules Implementing Book V of Executive Order No.292 and other Pertinent
Civil Service Laws provides the policies on career and personnel development in government.

• Every official and employee of the government is an assets or resource to be valued, developed
and utilized in the delivery of basic services to the public.
• Every department or agency shall therefore establish a continuing program for career and
personnel development for all agency personnel at all levels
• Each department or agency shall prepare a career and personnel development plan which shall be
integrated into a national plan by the Commission.
• Each department or agency should have a human resource development office created or a staff
assigned solely for the purpose of attending to the agency’s human resource development function.
• Every department or agency is mandated to ensure that each agency personnel shall have
undergone at least on planned human resource development intervention during the year.
 PERSONNEL TRAINING & DEVELOPMENT

A specific budgetary allocation of at least 3% of the annual budget shall be set

aside for human resource development. Such program shall include the
following:

• Induction Program
• Orientation Program
• Re-orientation Program
• Professional/Technical/Scientific Programs
• Employee Development Program
• Middle Management Development Program
• Values Development Program
SOME ISSUES & CONCERNS IN THE PHILIPPINE
CIVIL SERVICE

(1.) The bureaucracy does not set its own directions and functions as an adjunct or a
subordinate of the political branches of government.

(2.) The operational behavior of the bureaucracy largely adheres to the old-fashioned top-
down approach.

(3.) Civil servants primarily see themselves as individuals employed by the organizations
they serve, rather than as members of an institution dedicated to giving service to the
people.

(4.) Political influence and the "spoils" system continue to hold sway in appointments to
senior and other key career positions.
SOME ISSUES & CONCERNS IN THE PHILIPPINE
CIVIL SERVICE

(5.) While the professionalization of the bureaucracy has established some minimum
qualification standards for appointment, value dimensions have yet to be
factored into the system.

(6.) Information technology is driving many attempts of improving systems and procedures in
the workplace but these have to be coupled with sustained and purposive effort toward
continuous improvement and innovation.

(7.) The bias for strict regulation in service dispensation has not been replaced by a paradigm
of assistance and development orientation.

(8.) Government's compensation system needs to be rationalized to attract and to retain the
best and brightest in the bureaucracy.
SOME ISSUES & CONCERNS IN THE PHILIPPINE
CIVIL SERVICE

The Attrition Law: Rightsizing the Bureaucracy - The Lateral Attrition Law, or Republic
Act 9335, was enacted in 2005 with the aim of boosting revenue through an
incentive system where tax collectors who exceed expectations are given incentives
accordingly, whereas those who fall behind their targets are imposed penalties.
 TOWARDS A BETTER INSTITUTION FOR
GOVERNANCE

- Civil Service functions as the premiere human resource institution of the Philippine
government.

> It also acts as adviser to the President on human resource management

of the Philippine government. As provided under the 1987
Constitution, the CS mandated to “establish a career service, adopt measures to promote
morale, efficiency, integrity, responsiveness, and courtesy, strengthen the merit and
rewards system, integrate all human resource development programs for all levels and
ranks, and institutionalize a management climate conducive to public
accountability.”

>Ethics, Integrity, and Accountability for Good Governance, is always the

core of the Civil Service.
Thank you for your attention
Presented by: Lucia M. Hugos
Mealieza Ann C. Jison
Jade E. Leuterio
Chyd Andrea B. Malijan