PS 150

Philippine National and Local Administration

LESSON #1 – Definition, Nature and Scope of Public Administration

REFERENCES USED

Nebres, Abriel M, “Public Administration,” in Political Science Made Simple.

Mandaluyong City: National Bookstore, 2009.

Zulueta, Francisco, M, “Public Administration,” in Introduction to Political Science.

Mandaluyong City: National Bookstore, 2009.

I. Definition

A. Concept / Notion – ask class for ideas

B. Definition of Terms Associated with Public Administration

1. Public – body of people of a community, state or nation sharing some common interests

2. Administration – body of persons who administer (take charge / manage) a particular

course of action intended to achieve results common to all group effort public or private,
church, military or civil

3. Management – human activity of handling, directing or exercising control or supervision

on the functions of the organization such as government (gov’t)

C. Definitions of Public Administration

1. Subfield of Political Science committed to the study of bureaucratic processes and

institutions of government

2. Barry M. Richard / Melvyn Copen

a. basically an organized process concerned with implementation of objectives and

plans and internal operating efficiency

b. often bureaucratic in structure and behavior

1) relatively routine decision making
2) maintenance of internal status quo
 3. Robert Presthus

a. primarily concerned with the institutional framework of gov’t, its socio-economic &
political milieu, and the behavior of individuals who watch the bureaucratic machine

b. also deals with formulation of public policies and implementation of gov’t programs

4. Raul de Guzman

a. “wherever there is gov’t, there is public ad”

b. refers to the cooperative human action to achieve the purposes of gov’t

5. Leonard White
- concerned with action in particular situations but in accordance with long range
objectives

II. Nature of Public Administration

A. Essential Tool of Gov’t in Performance of Its Functions

1. constantly and correctly define its role in society

2. serves as ball bearing of gov’t

- policies and programs of gov’t are put in operation and implemented by the machinery
of administrative officials and civil service employees

3. executive, legislative, judiciary and other agencies of gov’t

B. Protective Partner of Politics

1. bringing affairs of gov’t to the people through active participation on matters affecting
their welfare

2. part of political process and political environment

3. dynamic organ of the gov’t that is sensitive to the needs of the people

C. Carry Out Public Policies

1. adherence to laws
2. observance of accepted management principles and practices
3. requires a lot of planning, coordination, problem solving and decision making activities
 D. Means for Implementing Political Values

1. different ends (gov’t, business, military, church), similar means

a. power, knowledge and skill must be organized

b. individual desires must be met by a rough equilibrium between contributions and

rewards

c. rules and regulations

1) hierarchy of formal and informal authority
2) conflict between organizational and individual values
3) specialization
4) operation

2. ensure efficient behavior on the part of its members

3. settle major policy questions and rationally carrying them out as rationally as possible

III. Scope of Public Administration: Public VS Private Administration

A. Public Administration VS B. Private Administration

1. broad field of administration 1. Limited

2. based on public trust with legal accountability 2. not necessarily based on

public trust
3. maintenance of status quo 3. dynamic entrepreneurship
(existing state of affairs)
4. actuations of public officials subject to 4. not normally subjected to
public criticism criticism

PHILIPPINE SETTING: Section 1, Article XI, 1987 Constitution

“ Public office is a public trust. Public officers and employees must at all times be
accountable to the people, serve them with utmost responsibility, integrity, loyalty and
efficiency, act with patriotism and justice, and lead modest lives.”
 PS 150
Philippine National and Local Administration

LESSON #2 – Approaches to the Study of Public Administration

REFERENCES USED

Lazo, Ricardo S, “Bureaucracy and the Public Sector,” in Introduction to Political Science.
Manila: Rex Book Store, 2009.

Nebres, Abriel M, “Public Administration,” in Political Science Made Simple.

Mandaluyong City: National Bookstore, 2009.

I. Formal Structural Approach

A. Identity of formal structure of government (gov’t) administration: as focal point of study

B. Public bureaucracy as prominent aspect: ~ equivalent word for / of the higher civil service

C. Concentrates on a particular structure or institution: at times denoted as structural or

constitutional

D. Relates to practical application of Max Weber’s idea of bureaucracy in gov’t admin

1. Max Weber – German sociologist (1864-1920)

a. viewed bureaucracy as a unique form of gov’t found in gov’t and all aspects of
human organization in society

b. bureaucracy as a structured hierarchy

1) salaried officials reach rational decisions
2) by applying explicit rules to the facts before them

c. bureaucracy as an ideal type (standard wise, not necessarily in terms of excellence)

2. Characteristics of Bureaucracy

a. hierarchical authority – ensures lowers offices are supervised by specified higher ones
within a chain of command (i.e. Chancellor in UP Constituent Unit)

b. specialization of line of work – each office has its own area of expertise,
specialization or competence (i.e. Colleges)

c. specified quality of being adequately qualified physically and intellectually

– based on merit and fitness (meritocracy, civil service)
 d. operates on basis of rules
1) bureaucratic rules are strict enough to regulate personal discretion
2) firm
3) specified – clarity for easy implementation; not ambiguous or capricious

e. impersonality or no personal preference

f. considered as public trust
g. civil servants are salaried employees according to rank (grade etc)

E. Can be manifested or applied in the theories / treatises of bureaucracy

1. Liberal or Administrative Model

a. bureaucracy has rationality promotes effective, efficient and predictable social org

b. “pigeon holding of spirit”

1) social environment – depersonalized and mechanical
2) iron cage – confine human passions and individual freedom

c. not at all impersonal or predictable

1) bureaucrats: psychological beings
2) common that they employ improvisation, informality and entrepreneurship in
decision making process

d. becoming pressure groups themselves

1) not neutral or passive – active in formation of laws and policies
2) expertise / specialization – advisers to boss, lobbyist

e. criticism: want of accountability and openness

2. Conservative or Power Bloc Model

a. socialist discourse – bureaucracy: associated with specific requirement of capitalism
b. bureaucracy as an instrument promoting bourgeoisie interests and defending
capitalist system
c. bureaucracy will wither away as a classless, communist society comes into existence

3. New Right or Gov’t Oversupply Model

a. bureaucracy simply inefficient overly self serving
b. bureaucrats (especially seniors) motivated by career self interest, expansion of
agency and increase in budget
c. bureaucratic growth (i.e. AFP Generals)
1) guarantees job security
2) expands promotion prospects
3) improves salaries
4) brings greater power, patronage and prestige to top officials
d. bureaucratic power should be checked & circumvented to pursue free market policies
II. Comparative Approach

A. Comparative method – comparative public administration

B. Comparison of functions across societies with emphasis on:

1. how resembling or similar structures carry out diverse functions

2. similar functions are carried out by diverse structures
3. theory of prismatic society – by Fred Riggs
a. explains divergences existing between public administration systems in non-
industrialized countries
b. irrespective of similar structure or function
i.e. PH with respect to ASEAN or Latin/South America

III. Scientific Approach

A. Look at the connection between administration and decision

B. Behaviorism behavioral approach

1. focus on inner dynamics within administrative organization

2. behavior of individual within organization and its effect on organization or aggregate
inner environment (lousy/snappy)
3. systems approach – input process ouput
a. human relations and authoritative character
b. lasting sense of balance based on dynamics of system

IV. Governmental Administration

A. Multi-disciplinary – consider current interest perceived as relevant to public administration

1. history case study
2. economics efficiency in delivery of gov’t services
3. sociology
4. law, etc.

B. Case Study: Goodnow and Wilson’s Public Administration

1. spoils system – victors dispense/distribute gov’t jobs to supporters
2. Pendleton Act (1883)
a. created Civil Service Commission in the US
b. recruit, employ and control gov’t employees based on merit and fitness
c. shuns patronage politics
3. political and administrative officials
- political officials (as policy makers) who control administrative officials (as enforcers
of policies) who never initiate policy but just follow guidelines
4. clearly defined at individual and agency level
5. now, expertise enable administrators to act as policy makers/deciders
 PS 150
Philippine National and Local Administration

LESSON #3 – Development and Evolution of Public Administration

REFERENCES USED

Reyes, Danilo R. “The Study of Public Administration in Perspective: A Passing Review of the
Development of Discipline,” in Introduction to Public Administration in the Philippines:
A Reader, Victoria A. Bautista et. al, eds., Quezon City, UPNCPAG, 2003, pp. 109-146

I. Development of Perspectives: Over A Century

Theoretical Images / Theoretical Approaches (Stillman)

A. Administrative Scientific Approach Tradition

1. “one best way” viewpoint highlighted in works of:

a. Taylor (1911)
b. Urwick and Gulick
c. Scholars of POSDCORB
- Planning, Organizing, Staffing, Directing, Coordinating, Reporting and Budgeting

2. science of administration – based on single, specific and correct view for doing and
thinking about public ad

3. inward looking theme

a. efficiency and effectiveness values of public organizations

b. improve efficiency and effectiveness in public management (mgt)

improve impact on society

4. closed, segmented or compartmentalized

internal operations of public organization, not clientele

5. no significant evaluation of spill over effects on clientele

B. Dualistic Vision / Dialectic Approach: Analyze Contradicting Perspectives

1. politics-administration tradition (1880s) – “a continuous clash of polar opposites”

2. scientific management approach (1930s) VS human relations movement (1950s)

a. human relations – general principles / aspects of government
b. policy and politics – policy takes into consideration politics and norms
 3. POSDCORB VS ecological factors – social, political and technological concerns that
influence admin system

4. Public Ad not only on execution of public policy

a. reinventing government
b. Policy Analysis VS Policy Execution – 1960s to 1980s

C. Pluralist Perspective
1. no one theory or approach – realistically represent contemporary approach
2. let a hundred flower bloom – eclectic field
3. new Public Administration
a. societal perspective of relevance + social consciousness
b. problems of society and social change – scientific, moral, normative, empirical
c. relevance, equity, responsiveness and proposition on assumption that Public Ad
should operate not on stable environment but on a volatile, changing one

II. Periods in Study of Public Administration (1900s to 1970s)

A. Henry
1. Politics-Admin Tradition (1900-1926)
2. Administration Paradigm (1927-1937)
3. Public Ad as Pol Sci (1950s-1970s)
4. Public Ad as Mgt Science (1950s)
5. Public Ad as Public Ad (1970)

B. Golembrewski
1. Analytic Politics-Admin Tradition
2. Concrete Politics-Admin Theme
3. Science of Mgt - values of scientific mgt, human relations and generic mgt
4. Public Policy Approach

C. Henderson (1966)
1. Thesis Stage – structure, function and processes of organization
2. Anti-Thesis Stage – behavioral-environmental concerns human relations
3. Synthesis – Systems Model and Philosophy

D. Frederickson (1976)
1. Classic } 4. Human Relations
2. Neo-classic } bureaucratic 5. Public Choice Model
3. Institutional

E. Modern Trends
1. divorce of policy-making (political/elected officials) from policy implementation
(administrative/appointed officials)
2. incorporation of private sector mgt techniques if not outright privatization
new public mgt: transfer of gov’t functions to private bodies
REFERENCE USED

Brillantes, Alex Jr., B and Maricel T. Fernandez. “Is There a Philippine Public Administration?
Or Better Still, For Whom is Philippine Public Administration?” in Introduction to Public
Administration in the Philippines: A Reader, Third Edition, Volume I, Danilo dela Rosa
Reyes et. al, eds, Quezon City, UPNCPAG, 2015, pp. 108-120.

III. Evolution of the Field of Public Administration

A. Traditional/Classical Public Administration

1. Human History
a. as old as the ancient empires of China, India, Egypt, Greece, Rome and Mesopotamia
b. foundation of public administration: institutionalization of administrative capacity
for collective purposes; all societies devoted to advancing the general welfare or the
public interest
c. “public administration should not be considered administration of the public but
administration for the public” (client oriented) as practiced and expressed in the
Code of Hammurabi, Confucianism, and in funeral oration of Pericles
d. monarchial Europe – household divided into two (2) groups:
1) one in charge of public affairs – admin of justice, finance and training of armies
2) the other responsible for personal services
e. royal administration in mid 17th and early 18th Century in Prussia as well as study of
public ad and its positions amidst the sciences in 18th Century

2. 1800s to 1950s
a. Woodrow Wilson – 1887 classic essay “The Study of Administration”
1) public ad should be a self-conscious, professional field
2) suggested the distinction between politics and administration
“politics-administration” dichotomy
3) Frank Goodnow – “father of American Public Administration” presented a
more meticulous examination of the politics-administration dichotomy in his
book, Politics and Administration (1900), that “supplanted the traditional
concern with the separation of powers among the various branches of the
government”
b. Max Weber – “father of Modern Sociology”
1) made a descriptive analysis of bureaucratic organizations:
2) features of bureaucracy: hierarchy, division of labor, formally written rules and
procedures, impersonality, and neutrality
c. Leonard White – Introduction to the Study of Public Administration (1926)
1) administration is still an art, although he recognized the ideal of transforming it
into a science
2) avoided the potential pitfalls of the politics-administration dichotomy
3) concentrated on emphasizing the managerial phase of administration
 3. From Classical, Neo-Classical to Integrative/Modern Organization Theories
a. Classical Theory
1) Frederick Taylor – “father of Scientific Management”; Classical Organization
Theory via “one best way approach”
2) Luther Gulick’s POSDCORB
3) Gulick and Urwick + Henri Fayol – single science of administration that
exceeds the boundaries of the private and the public sector
4) Simon, Waldo and Appleby – attacked the idea of POSDCORB
a) Simon – made a distinction between theoretical and practical science;
highlighted administrative efficiency and specialization
b) Appleby – attacked the concept of politics-administration dichotomy:
“public administration was not something apart from politics” but rather at
the “center of political life”
c) Waldo – hit the “gospel of efficiency” that dominated the administrative
thinking prior World War II
5) Sayre – attacked public personnel administration as “the triumph over purpose”
6) Selznick – “cooptative mechanism” – cooptation as “the process of absorbing
new elements into the leadership or policy-determining structure of an
organization as a means of averting threats to its stability or existence”

b. Neo-Classical Theory and Integrative/Modern Organization Theory

1) William Willoughby – advocated the role of the trilogy (the three branches of
Government) especially focusing on budgetary reforms
2) Mary Parker Follett – proponent of participatory management and the “law of
situation” which can be attributed to the concept of contingency management
3) Elton Mayo and Fritz Roethlisberger – conducted the Hawthorne experiments
on the theory of individuals within an organization, which propelled the human
relations school of management thought; human behavior and interpersonal
relations as important subjects for organizational analysis
4) Chester Barnard – presented a more comprehensive theory of organizational
behavior in which the executive should maintain equilibrium between the needs
of the employees and the organization (morale vs mission)
5) Maslow – focused on the hierarchical needs of the individual; five sets of
needs: physiological, safety, love or affiliation, esteem and ultimately, self-
actualization

B. Modern Public Administration – continuing “identity crisis”

1. Development Administration/DA (1950s to 1960s)
a. 3rd World countries as the focal point
b. according to French demographer and economic historian Alfred Sauvy (1952), “3rd
World” refers to developing countries outside the capitalist and communist power
bloc societies, namely, the 1st World and 2nd World
c. developing countries endeavor to make concerted efforts to be recognized as
“emerging nations” and to resurrect themselves after World War II
d. Landau (1970) – described DA as the engineering of social change
 e. Ilchman (1970) – these countries were “concerned with increasing the capacity of
the state to produce goods and services to meet and induce changing demands”
f. Gant (1979) – not merely address State functions (public service delivery and
enforcement of laws) but the inducement and management to pursue development
aspirations
g. Khator in 1998 argued that DA was built upon several critical assumptions
1) development needs are the most important needs of developing countries
2) the development needs of developing and developed countries are inherently
different
3) development can be administered
4) developmental know-hows are transferrable
5) the political, social, and cultural context of development can be easily altered
h. Fred Riggs (1970) – identified two foci of DA: development of administration and
the administration of development

2. New Public Administration/ New PA (late 1960s to 1970s) – introduced new principles
a. adds social equity to the classic theories of public ad
b. conventional or classic public ad sought only to answer inquiries on efficiency and
effectiveness
c. advocated public administrators should not be neutral as they should be committed
to both good management and social equity as values to be achieved

3. New Public Management (NPM) and Reinventing Government (1980s to 1990s)

a. practiced by European countries in the late 1970s and 1980s
b. launched by several luminaries such as Christopher Hood (1991), Christopher
Pollitt (1990), and Michael Barzelay (1992), among others, in the early 1990s
c. NPM praxis (theory and practice), as can be seen in New Zealand’s admin reforms:
1) privatized substantial public functions
2) redeveloped personnel system to become more performance-oriented
3) instituted new processes of productivity measures
4) reengineered departmental systems to reflect government’s commitment
d. “National Performance Review” during the administration of US President Bill
Clinton and Vice President Al Gore – urged the federal government to improve its
performance and led to the foundation of the praxis of reengineering government
e. according to Pollitt, NPM is a shift to “managerialist” movement with 5 core beliefs
1) the main route to social progress lies in the achievement of continuing
increases in economically defined productivity
2) such productivity increase will mainly come from the application of ever more
sophisticated technologies
3) the application of these technologies can only be achieved with a labor force
disciplined in accordance with the productivity ideal
4) management is a separate and distinct organizational function and one that
plays a crucial role in planning, implementing, and measuring the necessary
improvements in productivity
5) to perform this crucial role, managers must be granted reasonable “room to
maneuver” (i.e., “right to nanage”)
 f. solutions to economic problems that “works better but costs less”
g. “reinventing government” as advanced by Osborne and Gaebler in 1992, utilizes
business model prescriptions for government by using private sector innovation,
resources, and organizational ideas to improve the public sector; 10 principles
1) catalyctic government: steering rather than rowing
2) community-owned government: empowering rather than serving
3) competitive government: injecting competition into service delivery
4) mission-driven government: transforming rule-driven organizations
5) results-oriented government: funding outcomes, not input
6) customer-driven government: meeting the needs of the customer not their
bureaucracy
7) enterprising government rather than spending
8) anticipatory government: prevention rather than cure
9) decentralized government: from hierarchy to participation and teamwork
10) market oriented government: leveraging change through the market
h. criticisms
1) emphasis on people as “customers” or “clients” rather than “citizens”
2) customers placed as “end-product” users of government rather than as “means”
of the policymaking process
i. Denhardt and Denhardt (2003) offer a synthesis of the ideas that are opposed to
NPM presented by Osborne and Gaebler; 7 principles
1) serve citizens, not customers
2) seek the public interest
3) value citizenship over entrepreneurship
4) think strategically, act democratically
5) recognize that accountability is not simple
6) serve rather than steer
7) value people, not just productivity
j. Michael Hammer (1990) coined the term “reengineering organizations” – offers an
approach for improving performance, effectiveness, and efficiency of organizations
regardless of the sector in which they operate

4. Public Administration as Governance (the 1990s into the 2000s)

a. failed development interventions in the 1950s into the 1990s spurred the
introduction of “governance” paradigm
b. advocated by multilateral organizations like United Nations (UN), World Bank
(WB) and the Asian Development Bank (ADB)
c. governance goes beyond government
1) ADB defines it as the “institutionalization of a system through which citizens,
institutions, organizations, and groups in a society articulate their interests,
exercise their rights, and mediate their differences in pursuit of the collective
good”
2) UN Development Programme (UNDP) describes it as “the exercise of political,
economic and administrative authority to manage a nation’s affairs; embraces
good and bad methods to distribute power and manage public resources and
problems
 d. actors and factors that pushed for governance
1) governance is not the sole responsibility of the government per se
2) role of the market and civil society are of equal importance and should be
recognized
3) the quest for growth and development
4) the environmental movement
5) globalization
6) consolidating peace
e. good governance for sustainable development – UN Sec Gen Kofi Annan
concluded that “good governance is perhaps the single most important factor in
eradicating poverty and promoting development”
f. basic elements of good governance (Table 1, p.117, Brillantes & Fernandez Article)
1) accountability – making public officials answerable for gov’t behavior and
responsive to the entity from which they derive authority
2) participation – enhancing people’s access to and influence on public policy
processes
3) predictability – the existence of laws, regulations, and policies to regulate
society and the fair and consistent application of these
4) transparency – availability of information to the general public and clear
government rules, regulations, and decisions

IV. Fields of Specialization of Public Administration

A. Traditional Subfields of Political Science

1. Political Theory
a. study and analysis of political ideas of significant political thinkers
b. search for knowledge of political thoughts of various historical periods: Ancient,
Medieval/Christian, and Modern (Plato, Aristotle, Cicero, St. Augustine, St.
Thomas Aquinas, Machiavelli, Hobbes, Locke, Rousseau & other political thinkers)
c. recognized that their political ideas shaped the political institutions, law, order,
liberty, justice, and the quality of life into concrete historical circumstances

2. International Relations and Politics

a. deals with the relations between and among nation-states and how such relations are
defined
b. power traditionally considered a factor in the determination of international
relations and politics

3. Comparative Politics
a. study of contemporary politics and political trends in the different countries around
the world
b. compares and critically analyzes the variety of ways that these countries have
chosen to shape their political institutions and processes, assess the cost and
benefits of their choices and address common problems including the challenges of
globalization
 c. an eye toward identifying processes, practices, and policies which might be
“explorable” ideas for countries to borrow from one another

4. Public Administration
a. discipline emerged out of a broader discipline which is Political Science
b. “child of political science that is mature enough to be treated separately or
independently of its mother” (Reyes, 1993, p.22)

B. Subfields of Public Administration

1. Organization and Management

a. one of the oldest subfields of Public Ad
b. focuses on sub-areas like organization theory and practice, dynamics of
organization, decision making in administration, leadership, and other sub-areas
c. discusses the theories, processes, and techniques involved in the organization and
management of the national government and it agencies
d. explores modern management techniques such as reinventing, reengineering, and
other improvement methods in organization and management like total quality
management (TQM), which has largely contributed to Public Ad reforms

2. Public Personnel Administration

a. public administration consists of administrative processes
b. involves people as its important element
c. personnel management as “the recruitment, selection, development, utilization of,
and accommodation to human evolution”
d. discusses
1) evolution of public personnel administration
2) arrangements of the personnel system
3) general attributes of personnel functions in the public sector
4) development and current trends in personnel administration
e. personnel administration has widened its scope and evolved into human resource
management or human resource development (these two field complement and
supplement each other as “Organization Studies”

3. Public Fiscal Administration

a. covers a wide range of issues and topics affecting government operations like
taxation, public expenditures and borrowing, resource allocation, revenue
administration, auditing, and intergovernmental relations
b. embraces “the formulation, implementation, and evaluation of policies and
decisions on taxation and revenue administration; resource allocation, budgeting
and public expenditure; public borrowing and debt management; and accounting
and auditing”
c. introduction of government reforms: tax administration, value added tax (VAT),
expanded VAT, procurement reforms, the medium-term expenditure framework,
accounting reforms, reengineering the bureaucracy program, transforming local
finance, and many others.
 4. Local Government Administration – concept of “decentralization” is taken into account
a. decentralization, as a process, is one of the widely researched topics in promoting
dev’t and democratic governance
b. discussion of administrative organizations and operations of local governments as
well as the structure and processes of regional administration
c. particularly may include topics on theoretical and empirical perspectives of local
gov’t and regional admin, community and institutional dev’t, local gov’t
systems/procedures, intergovernmental dynamics, local public finance or local
fiscal admin, local eco promo, local & regional dev’t planning, local gov’t
innovations

C. New Subfields of Public Administration

1. Policy Analysis and Program Administration

a. policy studies focuses on the content of public policy, its processes, models,
theories and approaches, its impact on/evaluation of public programs and projects
b. considers in public policy other significant concepts, principles, and techniques for
systematic analysis and decision making in public policy and management
c. certain theoretical approaches and models introduced in studying public policy:
institutional, process, group, elite, rational, incremental, game theory, public choice,
and system model

2. Public Enterprise Management

a. privatization is one of the foci of this area of Public Ad
b. other topics include
1) the nature and processes of public enterprises
2) the relationship between the government and the public enterprise sector
3) issues on managerial autonomy, public accountability, corporate social
responsibility, and the role of state in the economy

3. Voluntary Sector Management

a. another emerging field of Public Ad, in recognition of the growing voluntary sector
particularly in the Philippines
b. developed expertise through the years through its institutional linkage (such as with
the UP Pahinungod)
c. can be referred to as “voluntary sector,” “third sector,” “non-profit organizations,”
“non-governmental organizations” (NGO), and “civil society organizations.”

4. Spatial Information Management

a. with the aid of support tools, all kinds of spatial data or information are utilized in
delivering public goods and services efficiently and effectively, with
data/information processed immediately and transported easily
b. some technology terms in gov’t such as e-gov’t, e-commerce, geo-visualization, e-
finance, global positioning systems (GPS), remote sensing, among others
 PS 150
Philippine National and Local Administration

LESSON #4a – Philosophy of Public Administration

REFERENCE USED

Ocampo, Romeo B. “Toward a Philosophy of Public Management Education” in Introduction to

Public Administration in the Philippines: A Reader, Victoria A. Bautista et. al, eds.,
Quezon City, UPNCPAG, 2003, pp. 26-37

I. Philosophizing: Reason and Definition

A. Reason (Why philosophize particularly Public Mgt. Educ?)

1. our gov’t and country is in sorry state

2. we need to have clear goals and objectives to guide dev’t
3. philosophy – provides basic ingredient of values needed as beacon for progress of the
science and art of administration
4. strengthen ethic in Philippine Public Service

B. Definition and Differentiation

1. Public Ad (American Thinking)

a. stronger in theory
b. administration can be made into a science
c. scientific study of admin leads to discovery of principles of admin
1) determine goals of economy
2) realize efficiency

2. Public Ad (British Doctrine)

a. explicit orientation to values (distinct though integral element)
b. administration cannot be reduced to science alone; combo of science and ethics
constitutes philosophy of administration
c. philosophical study of administration leads to discovery of scientific principles
and ethical ideas
d. qualitative rather than quantitative kind of efficiency
due to introduction of ethical element by philosophy

3. New Public Administration

a. reorientation to more substantive values such as social equity
b. importance of culture, value commitments and ethics
 4. Philosophical Nature/Discussion
a. not only ethical and moral (or value questions)
b. ontological (being existence), factual (real) or epistemological (nature and origin of
knowledge) issues as well
c. how we know (as against what ought to be known or done)

II. Values

A. Values Formation - urgency of forming appropriate values for Philippine Public Service

1. laws and regulations (previous and recent) – prescribe ethical behavior

2. problems of graft, corruption, misconduct in gov’t and society in past several decades
3. ethics courses – for training and education programs high school, business ethics)

B. Teaching Values

1. ethics – distinct course or integral part of other courses

2. observe, enforce, inculcate learn before teach
3. difficult to handle and tech personal, different standards, beliefs, ways, behavior

III. Politics and Administration

A. Dichotomy of Politics and Administration

1. should be separated within proper limits

2. mutual influence and interpenetration/permeability
- possible; be allowed and upheld with certain limits
3. liberal-democratic politics and gov’t (like PH)
a. simultaneous division and sharing of power
b. Executive, Legislative, Judiciary – separate but each affects others in law making

B. Dynamics/Relations

1. politicians superior to appointive administrators (bureaucracy)

a. politicians – elected and subject to people’s wishes; transient on the public state
b. administrators – appointed
1) to enforce politicians’ will for continuity and stability
2) political neutrality
3) loyalty to any not one party

2. certain standard for both politicians and administrators

a. dualistic view of politics – good/bad } obey law, don’t abuse, power at hand
b. demeanor of administrators } avoid making self serving rules
c. administrators – don’t have the right to substitute own policy judgments for those of
political leaders
 3. lines between politics and administration
a. should be drawn clearly structurally and functionally
b. political appointees VS career promotes i.e. ambassadors
c. bringing own management team: source of own projects
- discontinuity, instability, uncertainty in governance
d. career service – broadened/ better protected
e. leadership structure streamlined but retain power of the President to hire/fire
political executives

IV. Public Administration VS Public Management

A. Public Administration

1. attending to trivial matters of routine, maintenance and support function

2. traditional
3. favored by British
4. evokes spirit of public service – needs of needy VS demands of greedy
5. routine is important not inconsequential – has role to play
6. as art – better/learned in practice than school; skills based
7. as science – use method, empirical research, new models of data analysis,
empirically based (use of methods employing scientific rules/procedures)

B. Public Management

1. development administration, public policy, public affairs

2. implied partially against labor and other lesser members of corporate hierarchy
3. policy analysis (concerned with organizations and institutions) and mgt. of policy making
(provide scientific rigor in decision making role of executives)
4. negotiations, bargaining, series of games played (rules and discussions made indirectly
than directly/back channeling), command and control (thinking, writing, analyzing)
5. (7) S for successful mgt: strategy, structure, system, staff, skills, superordinate goals, style
6. hard VS soft managerial style
a. hard – cold triange (Americans) strategy, structure, system
b. soft – artful elements staff, skills, superordinate goals
7. political will
a. top choices are made and options closed after careful negotiation and deliberation
b. decide, implement and enforce after administrative kinks have been ironed out
 PS 150
Philippine National and Local Administration

LESSON #4b – Dimensions of Public Administration

REFERENCES USED

Carino, Ledivina V. “Contributions of the Perspective of Public Administration” in Introduction

to Public Administration in the Philippines: A Reader, Victoria A. Bautista et. al, eds.,
Quezon City, UPNCPAG, 2003, pp. 20-25.

Ocampo, Romeo B. “Spatial Dimension of Public Administration ” in Introduction to Public

Administration in the Philippines: A Reader, Third Edition, Volume II, Danilo dela Rosa
Reyes et. al, eds., Quezon City, UPNCPAG, 2016, pp. 135-146.

I. Perspective of Public Administration

A. Introduction on Public Administration

1. many people do not have much idea about Public Ad
2. young discipline in the Philippines ~ 1952
3. irony
a. men and women can serve gov’t without it (Public Ad)
b. others in it (Public Ad) have set their sights on non-gov’t careers
4. Public Ad can contribute to both governance & social life in gen. based on its perspective
5. perspective of Public Ad has four (4) dimensions

B. Dimensions of the Perspective of Public Ad

1. Technical Aspect (What It Is) – Nature/Identity

a. at its core – mgt. of gov’t
1) dev’t, deployment and husbanding of human, material and organizational
resources
2) generation and use of policies and strategies for delivery of public service
b. look at gov’t as “a field of business, removed from the hurry and strife of politics”
(Wilson 1957:71)
c. methodology and technique
1) learn from methods of eng’g, business ad and eco.
2) train people through knowledge from political science., sociology and
psychology

2. Problem of Democracy and Accountability (What It Stands For) – Values/Beliefs

a. vision and goal in the accomplishment of the task of admin
b. means as well as ends involved in Public Ad
 c. embodiment of democratic and accountable public service
- not just administer but administer in pursuit of democracy and accountability
with valuation of what is being done
commit to democracy and concomitant values of freedom and justice

3. The Role of People (Whom Does It Serve) – Dynamics, Action, Others/Client, Players
a. the word “public” redefined
b. “public” focus less on the gov’t institution but more on whom it serves
c. not “admin of public” but admin for and increasingly by the people

4. Issue of Indigenization (How Can It Be Effectively Employed) – Application to PH

Setting/Env’t
a. Filipinization of Public Ad
b. Philippine Public Ad rooted in Philippine experience and aspiration
c. clear view and incorporation of Philippine culture and the needs, capacities and
vision of Filipinos for their country

II. Spatial Dimension of Public Administration (SDPA)

A. Introduction

1. SDPA
a. refers primarily to geographic places, area, locations, distances, and other such
spatial elements and features
b. considered by government
1) when determining its jurisdictions, organization, policies, and operations
2) to take better (more discriminating) account of the spatial distribution of
people, problems, and processes over space
2. One can learn more if he/she views organizations and administration as involving spatial
relationships of a non-physical or institutional kind
3. Otherwise, such issues as concerning the following would arise or persist:
a. territorial boundaries (external and internal)
b. area-based organization and specialization
c. distribution of powers, functions, and resources between central and field units (i.e.,
decentralization)
d. horizontal and vertical coordination of functional and area-based entities

B. The Place of Space in Public Administration

1. Territory as basic element of the State (with people, government and sovereignty)
2. Territoriality variable overtime – from small city-state to empires and nation-states
3. Development in the study of Public Ad
a. early on – attention to the significant dev’t of field organizations the need to
reorient from compact geography of Europe to fragmented context of US
b. later – theoretical frameworks on SDPA in interest of basic societal values,
powers and functions of gov’t/social institutions can be divided areally & centrally
 4. Work organization division/aggregation
a. areally – by place/area, purpose, process, clientele and material (area vs function)
b. centrally – concentrated on or deconcentrated from the center in varying degrees
depending on size, prevailing circumstances/natural conditions, state of relevant
technologies, among other factors
5. Decline interest in SPDA
a. Simon attack on Gulick’s one best principle/organization theory
1) changing and dynamic balance contingent on changing circumstances
2) information-communication terms without much thought to
transportation/transmission
b. Riggs – geography as one of many environmental factors not considered in
ecological factors of Public Ad
c. Hutchcroft tried to revive interest in SDPA – alluded only to geography but mainly
concerned with the institutional/organizational dimensions of Public Ad
6. Two aspects of SDPA glossed over
a. effective scope of gov’t has depended on the state of technology and infrastructure
b. dependent also on dominant patterns of spatial development of the country
population, economy, society, and culture

C. Renewed Interest: The Impact of Technology on SDPA

1. role of geography in development and government

2. geography is not immutable but subject to technological and other developments
3. geographic determinism vs technological determinism
a. debate on importance and relevance of geography
b. vis a vis new technologies of information, communication and transportation
c. especially Information Communication Technologies (ICTs)
4. trends
a. “time-space compression”
b. “distanciation”(spatial projection)
c. “distance is dead” (transcendence of institutions)
d. “spaces of place” to “spaces of flows”
e. “network societies” on a global scale
5. globalization effects
a. borders have become more porous
b. nation-states have lost (or shared) their sovereignty with international bodies,
multinational corporations (MNCs), and superpowers
c. (some) localities and regions have assumed new prominence
6. influences on current Public Ad Theory
a. hierarchical organizations are breaking down in favor of horizontal units now better
equipped and network connected with ICT facilities
b. with ICTs enabling freedom from existing structures, time and space no longer pose
significant constraints; thus, borders no longer count as much as before
c. peripatetic (traveling from place to place) leaders can now roam and still maintain
command and control through portable virtual headquarters
 7. challenges to influences/trends
a. hierarchies are unlikely to disappear soon, having been the main mode of
governance, itself “as old as government” (Pierre & Peters, 2000)
b. nation-states have remained crucial players despite the apparent squeeze from
above and below (Rodan, 1998)
c. globalization, technology, and economic development have been uneven and have
had uneven results, favoring some countries, regions, and localities (not to mention
groups) at the expense of others; hence, “localization” has accompanied present-day
globalization
d. the wider effects of technology have been more complex than unilinear and polar,
neither solely in the positive direction as utopian visionaries see them, nor solely in
the negative one of dystopians

D. Uneven Patterns of Development

1. Development disparities have not received as much attention as they deserve in

discussions of SDPA issues (i.e., decentralization)
a. decentralization discussed mostly in institutional dimensions and hardly in
decentralization of development itself
b. discussion should focus on the prevailing spatial patterns of demographic,
economic, social, and cultural development + initial conditions presented by
geography and natural resources
2. Development has assumed diverse spatial patterns, as reflected by the concepts
developed to describe and analyze them (i.e., Marshallian economies, Primate cities,
Megapolitan growth, Industrial dispersion, World cities)
3. Spatial patterns have raised equally diverse questions about appropriate locations,
distances, sizes, shapes, and interrelationships of different places of work, residence,
and leisure and the movement of people, goods, and information.

E. Technology and Space: Information Communication Technologies (ICT) VS Transportation

1. Technologies have helped reshape development and governance spaces
2. Transport technologies and infrastructure have done much to extend the urban, regional,
national, and international channels of movement, networks and nodes of human
settlements, and overall patterns in the environment
3. New ICTs bid fare to do the same and to overtake transport technologies in the process
4. Effects of technology uneven and diverse
a. democratic diffusion and universal access vs digital divide
b. beneficial changes vs unintended/undesirable/inconsistent effects
5. Technological breakthroughs
a. reduction of travel and communication distances and times (satellite, fax, internet)
b. electronic digitalization of data and devices
c. expansion of communication capabilities
d. multimedia convergence
e. informatization – increased automation of production and other activities
f. informating – ability to generate and “harvest” data from operations for purposes of
control, coordination, and decision making
 6. Advances in integrated ICTs have enabled communication of various forms of
information (data, voice, video) to serve as a substitute for the transportation of people,
goods, and information in its older form “telecommuting”, “distant forms of work”
7. Substitution Effects of ICTs
a. have probably played an important part in the decentralization, privatization,
downsizing, and outsourcing strategies of gov’t as well as business firms
b. have also had complementary and other impacts on travel and transportation
c. telecom facilities do
1) focus infrastructure investments and operations in cities
2) result in relative or absolute substitution for physical flows
3) stimulate physical movement and development, just as urban concentration
of telecom facilities stimulates their use
4) enhance the attractiveness, efficiency, and capacity of transport and other
physical networks (road, rail, water, and energy), thus induce more trips
8. new transportation technologies contributed to more intensive and extensive use of
space through travel
9. incorporation of ICTs into transport and logistical systems has pushed their efficiencies
and attractiveness further
10. adverse impacts of new technologies – may be double sided
a. have had both centripetal and centrifugal effects on urban development
b. ICTs reinforce urban concentration yet telework may lengthen distances between
homes and workplaces, non-work trips instead of work-related travel

F. Geographic Information Systems (GIS) in Passing Review: Sharing the Dilemma

1. development of GIS has reasserted the importance of “where” in the world it belongs
2. reminds and shows people how and why taking geography more seriously lead to
more precise, accurate, discriminating and, hence, more efficacious government,
administration, and even politics
3. 1st Law of Geography – “states that everything is related to everything else, but near
things are more related than distant things”
4. like other ICT-based technologies, GIS has promised to transcend space even while
accentuating its importance through their integration and sharing with increased
connectivity among different organizations, units, and participants
5. GIS can be mired in a sticky process
a. connectivity does not guarantee free data flows
b. data sharing does not happen easily due to cost constraints and propriety tensions
between data producers and users (expensive and time-consuming)
6. like in computerization, the promised democratic diffusion and universal access can
hardly happen in GIS
7. instead of deterritorialization and steering from a distance, GIS has been found to have
“reterritorializing effects” with the reassertion of turf by the participating institution;
“informatization to have had a reinforcing rather than diffusing effect on power
structure”
 PS 150
Philippine National and Local Administration

LESSON #5 – Concept of Governance in Public Administration

REFERENCES USED

Carino, Ledivina V. “The Concept of Governance” in Introduction to Public Administration in

the Philippines: A Reader, Victoria A. Bautista et. al, eds., Quezon City,
UPNCPAG, 2003, pp. 20-25.

Ocampo, Romeo B. “From Public Administration to Public Management, From Governance

to Governmentality: Conceptual Challenges to Public Administration” in Introduction
to Public Administration in the Philippines: A Reader, Third Edition, Volume I,
Danilo dela Rosa Reyes et. al, eds., Quezon City, UPNCPAG, 2016, pp. 163-182.

I. The Concept of Governance

A. Introduction: Government VS. Governance

1. play of words
2. actor VS. action
3. dormant but resurrected
4. decision making
5. activities, actors, processes, criteria, capacities

B. The Act of Governing

1. govern – exercise power and authority over a territory, system or org’n

2. applies to both gov’t and governance
3. power – not so much wielded as shared
4. authority – defined not so much by control of ruler but consent/participation of governed
5. ruler VS. orchestrate
6. governance – process whereby elements in society wield power and authority and
influence, and enact policies and decisions concerning public life, eco. & social dev’t
7. mgt. over control

C. Actors in Governance

1. state – principal actor in gov’t being wielder of power

2. other actors in governance
a. civil society – consists of complex of citizens and groups outside gov’t but working
in public arena
b. NGOs, POs, PVOs
 D. Processes Pushing for Governance

1. Quest for Growth and Dev’t – move forward prosperity

2. Env’tal Movement – eco. growth; reduction of poverty and inequalities
3. Globalization
4. borderless economy
5. free trade
6. join or be left by the bus – change internally laws and bureaucracy
7. Consolidation of Peace
a. war torn area
b. no peace – difficult governance

E. Criteria for Good Governance

1. accountability and ethics

2. shared responsibility
3. people participation
4. responsiveness to the will of the people tolerance

II. Old VS New: Public Administration (PA) and Public Management (PM)

A. From Old Public Administration to Dev’t Administration and New Public Administration

1. Traditional or Old PA (OPA)

a. criticized by Dev’t Administration
1. drag on socio-economic progress
2. devoted to deadening routine
3. encaged in rule-bound bureaucracy
4. committed to maintenance of the status quo and ruling regimes
b. in American context – scored
1. seeking efficiency and economy at the expense of social equity and the interests
of gov’t “clientele”
2. assuming a stable, predictable, and orderly environment

2. Dev’t Administration (DA)

a. oriented toward change, economic dev’t, and all-around modernization, particularly
in poorer countries
b. material and cultural changes in Less Developed Countries (LDCs) to escape
poverty, inequality, and autocracy

3. New PA (NPA)
a. emphasized social equity, client-orientedness, non-bureaucratic organization
b. assume a turbulent and uncertain env’t
c. advocate wars on poverty and growth with equity
B. Public Policy, Implementation, and Service Delivery

1. Public Policy – major area of study

a. assertion of policy as a legitimate subject of PA scholars
b. politics-administration dichotomy
1) American (US) civil servants – normatively confined to implementation
2) Great Britain and Japan – bureaucrats have prominent role in policymaking
c. policy studies flourish with new perspective ands and analytical methods, especially
those derived from microeconomics

2. Implementation
a. policy “execution”
b. “implementation deficit” – induced by the complex layers of federal, state, and local
governments
c. analysis and evaluation of governmental processes and their outcomes
d. staff functions VS line operations and their consequences

3. Service Delivery
a. emerged with implementation studies and related problems
b. services needed to be planned, financed, produced, and delivered
c. supplied some meaningful insights to a government’s ideological premises, social
and spatial priorities, and personnel doctrines
d. citizen access and participation to complement service delivery
e. “street-level bureaucrats” – making policy while implementing it
f. “policy’ include (or indeed defined as) – the pattern of practices involved in
administration

C. New Public Management (NPM) and Reinventing Government

a. NPM
a. movement from British and European side
b. “reengineering” and “reinvention” from American (US) side
c. basically a private sector program applied or tried in some public jurisdictions;
emphasis to technology relevant to e-gov’t
d. underpinned by “public choice theory”
1) gov’t is inherently inefficient
2) private business management is better
3) gov’t should emulate or defer to the private sector
e. basic premise
1) neo-classical, neoliberal theory that the market is a better allocator and
distributor of social services
2) compared to the hierarchical organization of gov’t bureaucracy
f. gov’t
1) should be rolled back and reduced to a “sovereign” functions (like lawmaking
and adjudication) through LPD (liberalization, privatization, deregulation)
2) its structure and operations should be decentralized
 3) its processes internally and externally marketized through competitive bidding,
contracting, and outsourcing
g. three (3) main themes focused on
1) disaggregation – consisting of agencification, purchaser-provider separation,
decoupling of policy systems, corporatization, etc.;
2) competition – quasi-markets, voucher schemes, outsourcing, market testing,
intragovernment contracting, deregulation, user control, etc.; and
3) incentivization – respecifying property rights, “light touch regulation,”
privatizing asset ownership, anti-rent seeking measures, de-privileging
professions, performsnce pay, private finance initiative, public-private
partnerships, etc.

h. has been managerialist – insisting on letting (or making) “managers manage”

b. Reinvention
a. “steer instead of row” – gov’t debureaucratize, decentralize, and catalyze (Osborne
and Gaebler)
b. “entrepreneurial government” at different levels
1) emphasized competition
2) citizen empowerment through debureaucratization
3) goals and outcomes instead of rules and inputs
4) customer orientation
5) earning and not spending money
6) decentralization and participation
7) market instead of bureaucracy
8) provoking (catalyzing) multisectoral actions instead of just providing public
services

III. E-Governance and Digital Era Governance

A. Governance and E-Government

1. Governance
a. function or process; gov’t as structure
b. function shared by other non-governmental or non-state structures – markets, civil
society and networks
c. exercise of political, economic, and administrative authority to manage a nation’s
affairs (Dr. Ledevina Cariño)
d. the manner in which power is exercised in the management of a country’s social and
economic resources for development (Asian Dev’t Bank)
e. involvement of sectors beyond the state in the management of public affairs (Former
President Estrada)
f. not something the state does to society, but the way society itself, and the individuals
who compose it, regulate all the different aspects of their collective life (UN Deputy
Secretary General Louise Frechette)
2. E-Government
a. gov’t adoption and advocacy of new and more sophisticated technologies,
particularly computer-based information and communications technologies (ICTs)
b. extensive installation and the use of computer hardware and software
1) for organizing, collecting, storing, retrieving, and analyzing data from various
sources
2) for purposes of automating and “informating” gov’t processes
3) for facilitating decision making, coordination, and other actins at different levels
and at increasingly distant locations
c. digitalization, miniaturization, and standardization process
1) made it possible to combine computing and telecommunication facilities
2) interconnect different agencies, institutions, and groups in local and area-wide
networks, culminating in the global Internet and World Wide Web
d. conceptualized as the intensive or generalized use of information technologies in
government (Pardo and Jiang)
1) for the provision of public services
2) improvement of managerial effectiveness
3) promotion of democratic values and mechanisms
4) transform gov’t structures
5) improve the quality of gov’t programs and services
e. ICTs have promised to improve the generation, sharing and use of information and
knowledge
1) induce collaboration across different boundaries within and among nation-states
2) time-space compression and “the death of distance”
3) “spaces of flows” instead of “spaces of places”
4) simultaneous globalization and localization process (glocalization)
5) creation of “the information society” and “information polity” as well as
“information highways”
6) “horizontalization,” “deterritorialization,” further flattening, and easier
decentralization of gov’t structures as a result of ICT adoption
f. offers enhanced cost-effectiveness and resource savings
g. addresses some goal of NPM – reinvention and governance, particularly freer access
to gov’t info, online transaction with agencies, and otherwise better public service
delivery
h. also gone in directions opposite to those of NPM notably in working toward
reintegration of gov’t agencies
i. ICTs and e-gov’t have promised much more than they can deliver
1) accessibility of online data, interactive communication, and transactional public
gov’t relations have been patchy, if improved at all
2) “teledemocracy” remains a distant dream – control use of the Web (China and
Singapore)
j. poor performance can be traced to peculiar features of gov’t (Davies, Janowski, Ojo
& Shukla)
1) high failure rate in dev’t and usage
2) limited view that e-governance initiatives as primarily technology focused
 3) neglect of stakeholders’ expectations and neglect of the nature of public
management and governance
a) the specifity of gov’t tasks
b) the role of law (normative aspect)
c) the special significance of knowledge
k. “digital divides” create significant problems due to affordability, learning and
attitude (hatred) toward modern technology for their rosy promises and potent
dangers

B. Digital Era Governance (DEG) VS New Public Management (NPM)

1. NPM as dead in the water, DEG as its successor

2. NPM increased institutional and policy fragmentation and complexity and thus impaired
citizen’s ability to solve social problems
3. DEG practices impact (as seen by Dunleavy et al.)
a. Re-integration – “putting back together many of the elements that NPM separated out
into discrete corporate hierarchies, offloading onto citizens and other civil society
actors the burden of integrating public services into usable packages”
b. Needs-based holism – “reforms seek to simplify and change the entire relationship
between agencies and their clients (by) creating a larger and more encompassing
blocs”
c. Digitization changes – “a transition to fully digital operations.Instaed of electronic
channels being seen as supplementary to conventional and business processes, they
become genuinely transformative.”
4. DEG processes are not automatic and their prediction may “partly misfire”
5. DEG vis a vis “digital” NPM and parallel implementation of conflicting NPM and DEG
measures

IV. Governmentality and E-Governmentality

A. Governmentality

1. Invitation to look at PA, government, and the state in a different light than to change their
labels merging government and mentality
a. government – “the conduct of conduct,” of oneself and of others, through indirect
means, particularly in liberal sates, but (as other authors point out) also in
authoritarian ones
b. mentality – refers to the prevailing ideas, or ideology, guiding state policy and action,
such as the Keynesian welfare state Weberian bureaucratic ethos; governance
concept of a multi-actor complex seeing gov’t as occurring in ore domains – the
individual self and soul, the family, the church, and ultimately the state
2. Coined by Michel Foucault (a social historian and philosopher) to depict the evolution of
the modern state in the West with emphasis on its “rationalities” and “technologies,” its
main objectives, and its forms of knowledge and study methods (“analytics of
power/knowledge”)
 3. By governmentality, Foucault meant three (3) things:
a. the ensemble that, over a long period and throughout the West, steadily led towards
calculations and tactics that allow the exercise of this very specific albeit complex
form of power (i.e., government), which has its target population, as its principal
form of knowledge political economy, and as its essential means apparatuses of
security
b. he meant the long-term tendency leading to the preeminence of government over all
other forms of power (“sovereignty, discipline, etc.”) resulting in the formation of a
series of government apparatuses and the development of “a whole complex of
savoirs [knowledges].”
c. by governmentality, he meant also the transformation of the medieval “state of
justice” into “administrative state during the fifteenth and sixteenth centuries,” and
subsequently into the “governmentalized” state
4. Governmentality supplies the “horizontal” view of how non-governmental actors initiate
or participate in various processes and contribute expertise, technologies, and other
resources involved in the definition and resolution of public problems
5. This approach complements the typically top-down “vertical” view of the established
“liberal-instrumentalist” approach

B. E-Governmentality

1. Combination of governmentality and e-government

2. Question now on whether govermentality and e-government can be actually combined
a. to try to understand basic problems of power and conflict that convergence has
created or accentuated
b. the role that new rationalities and technologies have played in their (power and
conflict) “problematization,” confrontation, and resolution
3. Such a connection may still be tenuous at the moment
4. Even in the field of Information Science, Foucault’s work has also been relatively
neglected
5. Establishing the nexus may be possible and imperative, especially in a strong DEG
context, so that issues of liberal democracy (“regulatory governance,” succumb to
authoritarianism, “regimes of truth” and truth telling) that are bound to become acute are
dealt with
 PS 150
Philippine National and Local Administration

LESSON #6 – Public Administration in the Realm of

Globalization and Nationalism

REFERENCE USED

Briones, Leonor M. “ Globalization, Nationalism and Public Administration: Challenge

and Response” in Introduction to Public Administration in the Philippines:
A Reader, Victoria A. Bautista et. al, eds., Quezon City, UPNCPAG, 2003, pp. 77-108

I. Concept of Globalization

A. Mainstream Concepts – view globalization as primarily an economic, particularly trade and

business phenomenon

1. macroeconomic – globalization of markets continuation of international trade

2. microeconomic – firms behave differently in terms of suppliers and markets
3. spurred transformation not only of eco. system but also political, social and cultural
institutions as well
4. threat to human dev’t } business & gov’t as
5. opportunity for civil society to play a major role in dev’t process} active players

B. Emerging Concepts

1. does not limit globalization process to macro & microeconomic phenomena } int’l orgs
2. includes the ff: } like UN &
a. int’l movements } civil society
b. actions and initiatives on democracy } as advocates
c. human rights
d. env’tal and social dev’t
3. due to work of NGOs, POs, research groups and academics

II. Challenges and Opportunities of Globalization – 4 Areas

A. Economy

1. Trade Liberalization and Structural Adjustment – help in recovery and dark side
2. GATT/WTO & APEC – left by the bus VS safety nets
3. Perspectives on Globalization
a. positive: global survival; goal and opportunity
b. neutral: challenges and dangers in terms of human dev’t
c. negative: not prepared; imperialism in 3rd millennium
 B. Political Institutions and Governance

1. Levels of Governance – global, regional, national

2. Role of State – minimalist gov’t (facilitator); responsible gov’t (protector)
3. Whether Public Sector and Private Sector – blur boundaries; borderless economy;
gov’t VS governance
4. Public Finance – revenue generation and utilization
5. Administrative Reforms – downsizing and reinventing gov’t
6. Globalization of Corruption – open gov’t; open corruption
7. Role of Civil Society – enlarged in governance with respect to minimalization of gov’t

C. Social Institutions and Culture

1. Homogenization of culture
a. consumerism
b. media and technology
c. marginalization of minority cultures
2. Social Disintegration
a. criminality – drug related crimes (mass murder, violence against women and children)
b. cults – suicide cults + suicide among youth
3. Poverty – underdev’t and social consequence
4. Employment – contractualization and casualization
5. Search for Cultural Roots – tribal, community, national; going back to basics

D. Science and Technology

1. Keeping abreast – catch up, kep abreast, stay ahead

2. Moral and Philosophical Questions
a. cloning (whole/part) c. trade in parts of human body d. right to live
b. genetic eng’g e. right to die

E. Human Development – strand which holds together such concerns (A-D)

1. Common thread
2. Emphasis on education and health
3. Levels: National, Regional, Global (International/Community of Nations)

III. The Response to Globalization: A New Nationalism

A. Nationalism is incompatible with globalization

B. Nationalism amidst globalization (~New Nationalism)
1. guiding principle in dealing with globalization
2. serve national interest
C. Role of Civil Society
1. serve people’s interests human dev’t
2. identifier of the building blocks of new nationalism
IV. Challenges to Philippine Public Administration

A. Theories of Public Ad

1. Redefining borders in borderless, globalizing world; traditional national

2. Reestablishing locus and focus
3. Clarifying concepts on role of the state, private sector and civil society
delivery of public goods and services
4. Reviewing theories of bureaucracy computers and robots role?

B. Practice of Public Ad

1. Socio-economic transformation – felt by people

a. national dev’t plan and policy
b. annual budget
c. programs, projects, activities of gov’t agencies
2. Governance
a. national and local gov’t
b. bureaucratic transformation
1) downsizing: global arena’s winners and losers inclusion
2) not all can be entrusted to market (i.e. health issues – infant mortality rate)
c. priorities – national planning and budget
d. resource mobilization
e. role of NGOs, POs and PVOs in governance
3. Decentralization
a. in admin sense, can facilitate implementation of global governance at local level
b. powerful countervailing force vis-a-vis globalization
 PS 150
Philippine National and Local Administration

LESSON #7 – History of Public Administration in the Philippines

REFERENCE USED

Reyes, Danilo DR. “Public Administration in the Philippines: History, Heritage and Hubris,”
in Introduction to Public Administration in the Philippines: A Reader,
Victoria A. Bautista et. al, eds., Quezon City, UPNCPAG, 2003, pp. 38-65.

_____. “History and Context of the Development of Public Administration in the Philippines,”
in Introduction to Public Administration in the Philippines: A Reader, Third Edition,
Volume I, Danilo DR Reyes et. al, eds., Quezon City, UPNCPAG, 2015, pp.51-73.

I. Scan of Present Philippine Administrative System

A. Dichotomous Character
1. form – indigenous Filipino culture, values and temperament
2. substance – incongruent rhetorics (structure, style) and dynamics (forces, function)
a. rhetorics – Weber idea: efficiency, effectiveness, impersonalism, unambiguity, precision
b. dynamics – situational, relative, it depends \ adherence to rules
3. attitude:“colonial” – contradictory words and actions (based on colonial experience)
a. words – openly express
b. actions – secretly undermine dispensation to advance own cause and aspiration
(personal or otherwise)
B. Influences
1. structure – follows form of most bureaucratic organization (US)
VS behavior – distinct Filipino traits and culture (functional and dysfunctional)
2. exceptional combination of both Western and non-Western administrative system
- institutional and behavioral characteristics
3. rise and evolution of Philippine Administrative System – practice preceded discipline

II. Historical Development and Evolution

A. Pre-Colonial Period
1. some form of political, economic, cultural, social and communal organizations existed
2. regulate conduct of people – tribal states (loose sense)
3. barangays – extended kingship under datu (chief)
a. administrator of community life (like congressmen/women, mayor now!)
- arbiter of conflicts, provider of services, mobilize of community action
b. provided paternal leadership to his followers
c. given pledge of personal allegiance and loyalty by followers
- familial relationship carried on until now
B. Spanish Colonial Regime (333 years)
1. tradition of centralized bureaucracy to consolidate empire – unitary
2. religious organization/friars – assumed much power and influence
- clergy influence over civilian and military authorities
3. culture of spoils – patronage system: specialized/privileged class of bureaucrats
(point men, trusted aide/assistant)
4. offices sold to highest bidders
a. augment coffers of royal treasury
b. buyers: private investment to enrich themselves power and influence
c. spawned a concept of abusive administrative and colonial machinery
5. Spanish colonial bureaucracy – gap between rhetoric and practice
a. rhetoric – law as ideal and noble
b. practice – repressive and oppressive

C. Philippine Republic (1898-1901)

1. bureaucracy – as espoused by Mabini, based on merit and fitness, open competitive
examination, careerism, security of tenure, accountability
2. professional career service committed to simplicity and accountability
3. aspiration of decentralization and autonomy
4. Malolos Constitution (1899) – patterned after France, Belgium, South American republics
a. Title 11 – provided for the organization and powers of provincial and municipal
assemblies, which embodied a system of local government in the country
b. Title 12 – defined the features on the budget, payment from the appropriation laws,
disposal of property, and securing of loans
5. Filipinos already had a vision, if not an insight, toward an administrative system

D. American Colonial Regime (~1901-1935)

1. retained centralized feature of Spanish Era
2. political system of governance based on US government
a. republican and democratic in character
b. within bounds of colonial set-up
3. Philippine Commission – exercised executive and legislative power
a. US Civil Governor – chief executive
b. Cabinet – legislative + 3 Filipinos
4. separated affairs of church and state
5. upheld merit and fitness, political neutrality, security of tenure, careerism,
professionalism
6. Filipinization – liberalized entry of Filipinos in civil service with Americans comprising
less than 6% of the total by 1919
7. Manifest Destiny – civilize Filipino people as they believe/needed it
8. Civil Service
a. finished product, package based on American Civil Service System
b. professional civil service – efficiency, economy, merit + political neutrality as
contained in the provisions of a US law entitled Pendleton Act of 1883
9. Part of experimentation – philosophy of administration in new territory and culture
E. Philippine Commonwealth (1935-1946)
1. complete Filipinization of civil service – 1935
2. 1935 Constitution – full blown provision (Article XI)
a. embraced all branches and subdivisions of government – covered by civil service
b. emphasized careerism, political neutrality and security of tenure
c. Bureau of Civil Service – increased power
1) from 2nd class to 1st class bureau from Director to Commissioner
2) formal investigation
3) personnel – appointment, removal, separation, and discipline (suspension and
reduction in rank and in pay)
3. strengthen civil service – Commonwealth Act 177 dated 13 November 1936
a. principles of merit
b. open competitive examinations – basis of appointment
c. security of tenure
4. bureaucracy – assigned in implementation of social justice program
5. Japanese Interlude – WWII
a. did not entirely change existing civil service structure but traumatized it/stigmatized it
in the eyes of the people
b. collaboration – became dominant qualification for higher position/advancement
c. refused collaboration – coerced and threatened
d. administrative apparatus – instrument of hated regime
e. administrative delay, obstruction, less than full compliance with administrative orders
sabotage: condoned as moral and patriotic

F. Rehabilitation in the Independence Period (1946-onwards)

1. circumstances in emergence of own Philippine Administrative System
a. independence (1946) after WWII – ruins, reconstruction, upheaval, crisis, eco. dislocation
b. existing civil service – reforms needed posed challenges face squarely and decisively
c. response: faced democracy and self governance adopting US reform agenda
(with “good” intentions and hidden motives)
1) Bell Trade Act – preferential tariffs, PHP pegged to US$, parity amendment
2) War Damage Act – US offered US$800 million
2. rehabilitation agenda
a. political, economic and military interest at play
b. cleverly concealed in altruistic pronouncement
3. Philippines as great staging area for trade
4. Independent Republic (1946-1972)
a. emergence of 2 party system – bureaucracy vulnerable to partisan politics/spoils system
b. Bell Mission
1) general state country: economic and financial problems of the country
2) UP Institute of Public Administration (IPA) – set up in 1952
c. Civil Service Act of 1959 (RA 2260)
1) amending, repealing or improving existing provisions in Civil Service Law
2) public service focus – more economic and more effective
d. graft and corruption – 50/50 Plan+1950s to 1960s full swing at all levels: low (fixers);
middle (fake documents); high (misuse of public funds/corrupt transactions)
 e. anti-graft agencies – ineffective and poor record due to
1) organizational instability
2) frequent changes in leadership
3) political pressures in employee recruitment
4) public apathy
5) strained relationship among judiciary, legislative and executive (gov’t agencies)

5. Martial Law Years (1972-1986)

a. Presidential Decree (PD) 1 – Integrated Reorganization Plan
1) decentralized national government less in OP, more regional districts
2) standardized organization and operation, staff services planning, finance and
management, administrative and technical service
3) facilitated preparation and execution of national development production
National Economic and Development Authority (NEDA) from National
Economic Council and Presidential Economic Staff
4) generated savings – abolition, transfer of functions and mergers of agencies
b. initiated the professionalization of the public service
c. civil service purges
1) 1973 – 1,500 civil servants summarily dismissed
2) 1975 – large group of gov’t personnel purged including Cabinet
d. civil service became both willing and unwilling collaborators of the regime
e. Career Executive Service organized and new civil service law codified
f. compromised security of tenure as protégées and accomplices of the regime soon
replaced those dismissed (seen also in AFP extension of Generals/rank promotion)
g. corruption remained – BIR, Board of Transportation
1) creation of Constitutional Bodies
a) Tanodbayan (Ombudsman)} independent of the President;
b) Sandiganbayan } organizational stability by constitutional provision
2) should be initiated by citizens; therefore, no big fish

6. Restoration of Democracy (1986-present)

a. ouster of Marcos – installed Corazon C. Aquino as President of the Philippines
1) democracy restored with new constitution promulgated and ratified in 1987
2) independence of civil service based on merit and fitness restored and upheld
3) like Marcos, Cory undertook massive and wide-scale reorganization of the
bureaucracy brought about dislocation and discontinuities
4) “de-Marcosify” government to remove all vestiges of the Marcos regime
a) rationalized bureaucracy by establishing Presidential Commission on
Government Reorganization (PCGR)
b) streamlined 3,000 offices attached to the Office of the President (OP)
c) privatized 87 Government Owned or Controlled Corporations (GOCC)
d) abolition of 38 non-financial corporations
e) adopted Administrative Code – spelled out the structure and functions of
various government agencies
 5) landmark laws approved
a) RA 6713 (1989) – Code of Conduct and Ethical Standards for Public
Officials and Employees
b) RA 7160 (1991) – Local Government Code: provided greater local
autonomy and decentralization.

b. succeeding administrations
a. President Fidel V. Ramos (1992-1998) – adopted his initiatives to reorganize the
bureaucracy
a) enhance civil performance
b) contain corruption
c) introduce reforms to enhance efficiency

b. President Joseph E. Estrada (1998-2001) – adopted his initiatives to reorganize

the bureaucracy

c. President Gloria M. Macapagal-Arroyo – got embroiled in charges of massive

and wide-scale corruption
officials implicated in conspiring with high government officials in
defrauding the government by misuse of public funds

III. Administrative Values in the Philippines

A. Influences – sometimes compatible, sometimes conflicting
1. Impact of larger societal culture where bureaucracy must operate
a. cultural values (amor-propio/self respect, delicadeza/propriety, hiya/shame, utang
na loob/debt of gratitude, pakikisama/friendship or familial ties) reflect on
bureaucratic behavior and the exercise of official functions
b. superimposed on such values are accepted norms of behavior as social acceptance,
the respect for authority/elders, and the influence of religion
c. result can be both positive and negative, expressed by
1) refusing to engage in confrontation or outright conflict
2) by compromising policies and procedures to avoid disagreements /differences
d. values as respect for senior officials or persons (or in many cases) of favoritism,
paternalism, and nepotism, can serve to compromise the exercise of official
functions or duties
e. special treatment in government transactions can also be accorded to relatives or
even province mates
2. Formalities dictated under the norms of Weberian bureaucracy remain strong in
Philippine bureaucracy
merit and fitness, competence, and qualifications persist as standards in recruitment
and appointment even if disrupted at times by patronage
3. Influences of the colonial periods continue to influence behavior
a. positive way
American values of merit and fitness and competitive exams continue to hold
sway and enjoy acceptance in bureaucracy
 b. negative way
refusal to initiate innovations, or weak or indecisive compliance of rules
continue to impair Philippine bureaucracy, thought not as rampant as during
colonial era

B. Bureaucratic Values and Behavior

1. adapted and adjusted to the vicissitudes and vagaries of its environment and its past
2. viewed as a web of influences and a curious blend of indigenous social forces,
implanted norms, and colonial legacies according to the demands of particular situations

IV. Public Administration as a Discipline

A. Development of Discipline
1. bereft of intellectual nuances and particulars of painful disciplinary evolution; shaped at
a time of crisis and transition in the Philippines
2. appeared as packaged product encapsulated in suspended belief system
- from US Public Administration as Discipline
3. introduced to arrest the ails of society and government that was rapidly deteriorating,
weak and inadequate
a. rehabilitation of war – slow and sluggish
b. American democracy – precarious and unstable
c. mass poverty and agrarian unrest
5. civil service – low point due to
a. low prestige
b. incompetence
c. meager resources
d. cynical corruption
e. low morale
f. lack motivation
g. politicking and patronage
6. prescription
a. explored and probed the realities and dynamics of bureaucratic milieu
b. examined complexities involved in it
c. recommended strategies to improve it
7. Filipino and American (with other nationalities) scholars – individually and collectively
a. engaged in research and consultancy services
b. launched comprehensive training and education programs
c. spread ways of efficiency, effectiveness, economic and other cherished values of
good administration
8. Result: Public Administration articulated sentiments and persuasions on administrative
practices in the Philippines in almost all facets of governance
a. national government to local units
b. in all branches of government – executive, legislative and judiciary
c. reorganization, personnel administration, fiscal management
d. publications – scholarly studies and reports
B. Institute of Public Administration (UP)
1. trailblazers in the Philippines
2. concerns – three (3) areas
a. building up of public library
b. introduction of two (2) pronged education program
1) training of government workers
2) academic program development of undergraduate and graduate degrees
c. conduct of research and publication of literature on public administration

C. Peculiarities of Public Administration as a Discipline in the Philippines

1. unlike US, Public Ad in PH did not evolve out of some disciplinary diaspora from other
fields of social science like Political Science
response to the demands of government reform in past colonial period
2. PH Public Ad – did not have to endure a hostile academic environment/community
regarding its being a field of study
help professionalize government service; role cut out for it as a package to address
government administrative weaknesses and inadequacies
3. priority well defined Institute: training takes precedence over academic function

D. Themes in the Study of Public Administration in the Philippines

1. administrative management design

2. decentralization and local administrative movement
3. the challenge of national development and development administrative model
4. the theme of administrative reform and accountability
5. social reform movement
6. international and foreign comparative administrative studies
 PS 150
Philippine National and Local Administration

LESSON #8 – Development and Evolution of

Public Administration in the Philippines

REFERENCE USED

De Guzman, Raul P. “Is There a Philippine Public Administration?” in Introduction to Public

Administration in the Philippines: A Reader, Victoria A. Bautista et. al, eds.,
Quezon City, UPNCPAG, 2003, pp. 3-11

I. Article by Raul P. De Guzman

A. “Is There a Philippine Public Administration?”

1. Yes – Public Ad (Philippine, American, French, Thai, etc.)
2. Other questions need to be asked and answered – reference

B. Reference
1. Definition – (as Governmental Bureaucracy); “practice”
a. (broad perspective)
1) activities in implementing policies and programs of government
2) processes and contents of such policies and programs
b. (broader perspective)
1) cooperative human action aimed at delivering services to the people
2) public bureaucracy, private sector, non-governmental organizations (NGOs)
2. Definition – (as distinct field of study); “theory”
a. professional and scholarly discipline – career; knowledge (education and training)
b. public policies and programs
1) formulation and implementation
2) socio-cultural, economic and political factors bearing on them
c. systematic study of institutions and processes
1) interplay of factors in authoritative decision making – goals
2) implementation itself (the process)
3) achieving of desired results

C. Public Ad as Governmental Bureaucracy

1. Structural Features
a. hierarchical structure of authority
1) department, bureaus, divisions and sections
2) regional, field offices and local governments
 b. creation of sub-units based on differentiation of functions and specialization
based on responsibilities
1) particular program – Dep Ed, Bureau of Plant Industry
2) geographical areas (dev’t authority/MMDA; local gov’t)
3) clientele – Office of Muslim Affairs
4) processes/procedures – accounting/auditing office
c. merit
1) main basis for recruitment of personnel in bureaucracy
2) as covered by fundamental and other laws
d. policies, rules and regulations
1) substantive and procedural
2) adopted in gov’t agencies to guide the whole organization
managerial decision makers, program/project implementers, rank and file,
general public
e. informal set-up/avenues – impinge on performance of gov’t agencies and personnel
1) family and kinship
2) religious groups
3) socio-economic, political and other groups
f. dilemma of public administrators and employees
1) theory VS practice
2) continue to search for flexibility
g. consequence – disconnect between theory/rules (‘what should be”)
and practice (“what is”)

2. Behavioral Characteristics
a. traits – labeling
1) functional (+) – normal, desirable, objective, precise, consistent, discrete/discretion
2) dysfunctional (-)
a) “follow rules” very strictly
b) conservatism, extreme caution and timidity on part of administrators
c) impersonality – conflict with general public
d) others – lack of initiative, unwillingness to delegate, rigidity and inflexibility,
red tape and buck passing
b. conflict – between formally prescribed and actually practiced
1) 50-50 agreement: new positions 50 Malacanang
2) change #1
a) series of ~19 clearances in 4 agencies, 273 days for final approval
b) delay in processing work in government
c) red tape
3) speed up process (informally)
a) personal follow-up
b) contact friends, relatives, military officers, politicians, religious leaders and/or
other influential persons
c) bribe
 3. Views on Graft and Corruption
a. public office centered
1) action/decision/behavior is judged using norms or standards of public office as basis
2) generally followed in Western countries
3) rules are rules
b. public interest centered
1) action/decision/behavior is judged using power or authority
used to promote public interest or personal gain
2) dominant in developing countries including PH
3) the end justifies the means – conversion

4. Foundations and Other Similar Arrangements

a. established and attached to gov’t agencies and to universities/colleges
b. mechanism for flexibility – in receipt and disbursement of funds
by pass accounting and auditing rules and regulations which impede on
efficiency and effectiveness
c. privilege or “launder” public funds – Bobby Ongpin/Mike Arroyo?

D. Public Ad as Field of Study

1. considered both as a professional and scholarly discipline
2. PH – graduate level and second field of specialization
3. Reference – is made to the Americans literature
4. Curricular Programs
a. 50s-60s – Institute of Public Ad (IPA)
1) internal management/staff functions
2) later on, courses on public ad, [political economy, social change
b. 70s – program administration & public policy (health, agriculture, education, housing)
c. 80s – accountability and ethics in gov’t
d. recently (80s/90s/00s) concept of “public” in public ad
1) public as ‘govenrmental’ – public bureaucracy and administrative capability
“inward” as in ME (then)
2) public as people – delivery of services to people including alternative channels
like private sector, NGOs, cooperatives
“outward” as in THEM (now)
5. needs for teaching/instructions
a. faculty members – with academic qualifications and administrative experience
b. production and use of indigenous teaching materials
c. use of innovative teaching methods and techniques
d. formulation of more relevant models and analytical concepts

E. Conclusion
1. Public Ad as inevitably ethnocentric or culture bound
2. Socio-cultural, economic and political setting – environment of public mgt/admin
3. “Science of public ad” – generalized principles independent of national setting
far from being realized
REFERENCE USED

Corpuz, Onofre D. “Is There a Philippine Public Administration?” in Introduction to Public

Administration in the Philippines: A Reader, Victoria A. Bautista et. al, eds.,
Quezon City, UPNCPAG, 2003, pp. 12-19

II. Article by Onofre D. Corpuz

Public Ad is shaped by three (3) other institutions

A. Education
1. Philippine education is weakest in history and science
2. History – story of ancestors and people past, present, future
a. tells us how our ancestors fared
b. story of how the people became or failed to become what they wanted to be
c. door to the past
d. lack of sense of history among Filipinos
e. fuzzy sense of nationhood
3. Science – physical world possibilities, future
a. provides understanding of the nature and working of physical world
b. tells us what is physically possible
c. one of mankind’s principal windows to the future
d. mass media – influence in the field of illusion and image rather than of news & reality
e. haphazard quality control (deterrent to export lines) and avoidance of precision

B. Politics
1. Filipino people deprived of any meaningful experience in the politics of civil gov’t
2. Service was compulsory; principalia (upper class) spent money to avoid being named
gobernadorcillos (mayors) figureheads of the friars
3. Politics – out of civil gov’t; politics of the pueblo religious fiesta
hermano mayor: sponsor/presiding officer of celebrations had power/influence

C. Government
1. American gov’t – efficient papers on each item of equipment
2. gov’t under Americans
a. pro-consular and limited (schools)
b. PH as colony, US presence in Far East through cooling stations and naval bases
3. working democracy – popular elections, yes but new system
overlay for old system of local elites + ways and means to get things done
4. 1935 – Filipino notions of politics and gov’t
a. expansion of national gov’t (school and education)
b. big gov’t – private businessmen developed “connections”
c. clear origin of cronyism
5. public administration cannot perform well all its varied roles
a. one success story – hailed as triumph
b. new project – state of the art, sexy, short memory
6. media resources – keep shortcomings/people’s frustration under control (steaming lid)
D. Conclusion
1. Education, civil politics and government – don’t have a continuity with the past
2. Existing Public Administration as faithfully Filipino
a. CR stink, tissues pilfered
b. bring free enterprise to office – sell jewelry, clothes, food
c. supervisors never rate subordinates inefficient or unsatisfactory (kawawa naman)
d. misfits weeded out not by rating system but by disciplinary process
(after the fact/mischief)
e. political padrinos – for recognition and advancement
3. No political party stood for serious civil service reform
none really: groups/factions built around leaders
4. Civil Service Commission – national personnel records office; cheating/collusion
5. Gov't doesn’t improve public ad words are not matched by actions
REFERENCE USED

Pilar, Nestor N. Brillantes. “Philippine Public Administration: From Classical, to New Public
Administration, to New Public Management,” in Introduction to Public Administration in
the Philippines: A Reader, Third Edition, Volume I, Danilo dela Rosa Reyes et. al, eds,
Quezon City, UPNCPAG, 2015, pp. 155-161.

III. Article by Nestor N. Pilar

quest for identity of Public Administration (PA)

A. Is There a Philippine Public Administration (PA)?

1. Curricular Programs – straddle al levels
a. undergraduate – bachelor’s degree
b. graduate – master’s and doctoral degrees

2. Teaching Materials Written by Filipinos

a) The management imperative
1) Arsenio P. Tandingan’s Public Administration and Management in the
Philippines (1966)
highlights the PH situation of concepts and techniques of PA practiced in
US, Canada, and England – contents reflect the blend of Western PA
principles as applied to PH gov’t reorganization efforts under the Government
Survey and Reorganization Commission (GSRC) in the 1950s

2) scientific management was the answer to incompetence, red tape, and

corruption in the Philippine government
a) problems of PPA at that time
i. circumvention of civil service rules, the spoils system engendering
inefficient management and demoralization among the ranks
ii. rampant official corruption
iii. defects in development planning
iv. lack of coordination
v. low standards of administrative leadership
vi. centralization and “passing the buck” upwards
vii. weak local governments
b) prescription for administrative reform
i. executive leadership, local autonomy, integrity, and discipline
ii. eco. dev’t, particularly in terms of the tax structure & revenue admin
iii. fiscal management
iv. personnel management
v. organization and methods

3) True to classical approach

a) formula for admin efficacy consisted of the importance of bureaucracy
b) prescription: reforms in mgt process, dynamics of leadership, and
strengthening the role of the bureau director as administrator
 b) The political and social setting
1) The political and social setting Foundations and Dynamics of Filipino
Government and Politics edited by Jose V. Abueva and Raul P, de Guzman
embellished the management-oriented curriculum with a social science,
particularly a political dimension
2) Above mentioned volume invited PA scholars to consider their understanding
of the field to include: social and cultural foundations; politics and dev’t; civil
rights, and attitude and behavior
3) Also dwelt on such political institutions as: political parties; interest groups;
Congress; the President; the Judiciary; the bureaucracy; local gov’t; foreign
policy; and most importantly, the link between national development and
public policy

c) Public policy, public choice, on to New Public Management

Introduction to Public Administration: A Reader (2003) edited by Victoria
Bautista, et. al.
1) reintroduced the definition and scope of the field
2) heralded the advent of New Public Management (NPM), a tripartite approach
to PA – as regards the state, the market, and the community
3) introduced NPM concerned with reengineering or reconstructing the functions
of government
4) areas or elements comprising the new field cover public policy and its
implementation, local governance, organization studies, fiscal administration,
and voluntary sector mgt
5) expanded content – advocacy for adopting such strategies as people
participation, social access, and participative governance
6) much stress laid on public service values: administrative and political
accountability, nationalism and good governance;

B. What is “Philippine” About Philippine Public Administration (PPA)?

1. legal, political and administrative systems were patterned after those of
colonizers/Western powers
2. formal study of PA originated from US under the technical assistance program
including program of study, models, concepts and techniques, instructional materials;
initial administrators of the program and faculty coming from University of Michigan
3. complete “Filipinization” of the textbooks
4. “global village” to “global sala” – unrelenting technological advances and the
availability of electronic gadgetry (satellite comm, cable tv, mobile phones, laptops,
and the internet) now bring the world virtually into one’s living room
5. through various media – PA can get continuing updates and influence from the
external environment
PPA cannot be purely Philippine but will continue to be a curious blend of elements
and components emanating from its internal and external environment
C. What’s the Future Like?
1. Between 1950s and the 1970s, the environment shifted from relative peace and a sense
of stability, to a turbulent, rapidly changing, and temporary one
One cannot use yesterday’s tools for today’s problems
2. Values
a. PA – 3Es: efficiency, economy, and effectiveness
b. New PA – 3Es + relevance, client orientedness, and equity
PA programs should pass not only the tests of effectiveness and economy, but also
of relevance, access to service, and meeting client needs
3. Structures (in earlier use)
a. monolithic and bureaucratic
b. new temporary env’t needed flexible, self-terminating organizations
Search for and design alternatives to bureaucracy, like task forces & project teams
4. Process
a. Classical PA entailed the core of the field – organization and management,
personnel administration, and fiscal administration
b. New PA – distributive (decentralized, devolved), boundary-exchange (emphasis
on line functions), socio-emotional (transcending impersonality), and politics of
love (administrators supplanting/complementing politicians) in policy and
program advocacy
5. 1990s: post-Reagan and Thatcher Era
a. called attention to the failures of big gov’t particularly in protecting the env’t
b. calls for gov’t to
1) reengineer or rethink the functions of gov’t
2) unload to the private sector
3) stress the tripartite coordination of state, market, and civil society in
governance
6. NPM
a. env’t of PA moved from bad to worse, as the turbulence intensifies into hostility
1) seriousness of threats from terrorists and the escalation in the number and
intensity of kidnapping and bombing by int’l and local terrorists groups
2) melting of polar caps, the rising ocean levels, climate change, and the
frequency and destructiveness of earthquakes, tidal waves, hurricanes, and
cyclones
b. study and practice of PA must necessarily include risk management, dealing with
crises caused by natural forces and by human forces (military coups, weapons of
mass destruction, and chemical, biological, radiological, and nuclear weapons)

D. Potential Issues and Problems

1. Doubly difficult to successfully orchestrate the interventions of government,
business/market and community/civil society (enlargement of current forces from
national to regional administration planet at risk interplanetary and galactic mgt
2. PA must design mechanisms that advance accord or harmony, and eliminate discord in
the process of participating in governance
3. Focus on “governance” meant transcending concerns with matters of the state, into
those of the market and the larger community
 REFERENCE USED

Brillantes, Alex Jr., B and Maricel T. Fernandez. “Is There a Philippine Public Administration?
Or Better Still, For Whom is Philippine Public Administration?” in Introduction to Public
Administration in the Philippines: A Reader, Third Edition, Volume I, Danilo dela Rosa
Reyes et. al, eds, Quezon City, UPNCPAG, 2015, pp. 107-108, 120-128.

IV. Article by Alex B. Brillantes Jr. and Maricel T, Fernandez

posed the question “For Whom is Philippine Public Administration?”

A. Gawad Kalinga (GK): Model of PPA and Governance (Home Grown Governance Paradigm)
(SEE Table 2 and Figure 1, p. 121)
1. Effective delivery of services as a core concept
GK as an emerging model for development
2. Cooperation between government, business, and civil society
GK as a converging point for partnership
3. Enhancement of social equity as a key question
GK as template for good governance

B. GK Governance Paradigm
(SEE Table 2 and Figure 1, p. 121)
1. Cooperation/overlap between/among government, business and civil society
2. Incorporation of Millennium Development Goals (MDG)
3. Aligning of GK Governance Program to MDG
4. Become Global Model for Dev’t: Papua New Guinea, Indonesia, Cambodia; Extending
to East Timor, India, Nigeria, and Nicaragua

C. Challenges: Indeed For Whom is Public Administration

1. For whom has the field of PA been developed?
2. How have PA structures, systems and institutions in the PH responded to the broader
questions of promoting accountability, transparency, and participation?
3. What has been the role of info, comm, and technology in making PA more responsive to
the stakeholders who really matter?
4. How have the public administrative structures, processes, and institutions responded to
the ever-pressing problem of poverty?
5. What has been the impact of globalization and the response of PA structures,
institutions, and processes in the dev’t and evolution of PPA?
6. How can we address the problem of maldistribution, such that those who have less in
life should have more in governance and PA?
7. How can we develop indigenous PA practices like GK? How can we replicate and
further mainstream good practices of governance and dev’t in a venue of cooperation,
trust, and partnership with various stakeholders?
8. How has the teaching, research, and publication of PA responded to the above?
 PS 150
Philippine National and Local Administration

LESSON #9 – Political Administration and Leadership

REFERENCE USED

Alfiler, Ma. Concepcion P. and Eleanor E. Nicolas “Leadership Studies in the Philippines:
A Review of Literature” in Introduction to Public Administration in the Philippines:
A Reader, Victoria A. Bautista et. al, eds., Quezon City, UPNCPAG, 2003, pp. 473-506

I. Introduction

A. Concern – study leadership in the Philippines

1. “input” – collection/compendium review of literature
2. “process” – completing the puzzle/connecting the dots
3. “output/result” – overall picture milieu/environment through previous works

B. Method – present it in a or as a package

1. form – sewn together
2. substance – organization/arrangement of works/studies theme/area of concern
3. implication/trend – multidisciplinary/interdisciplinary

C. Objectives
1. to describe and analyze braod categories of works and studies on leadership
2. to suggest areas for research (based on trends discerned) as part of a research agenda
for leadership studies

D. Coverage – Materials
1. Leadership, Citizenship and Democracy Program (LCPD), UPCPA (UPNCPAG)
2. UPCPA Library
3. Filipiniana Section – UP Diliman Main Library
4. Other colleges in UP – Asian Center, College of Education Curricular Programs

E. Parts
1. Leadership Studies in Formal/Organizational/Political/Administrative Settings
- not mutually exclusive
2. Leadership Studies in Community Settings
II. Leadership Studies in Formal/Organizational/Political/Administrative Settings
Theoretical Side – theory as being practiced

A. Historical Roots/Values Underlying Filipino Concepts of Leadership

1. to search deep into our nation’s past and look into our historical experiences and
core values as a people
2. to establish the basic elements of the Filipino concept of leadership
3. examples
a. work of Salazar – relationship between rulers and followers in pre-colonial PH
b. 1896/1986 – comparative approach by Talisayon/Ramirez
c. qualities of Filipino Leader - Constantino

B. Political Leadership
1. describe and analyze models of Philippine political leadership
2. discuss the roles and functions of political leaders in dealing with threats to the viability
of the Philippine State
3. identify modes of recruitment of local and national officials who may be elected or
appointed to political positions
4. example: Agpalo’s Leadership and Type of Filipino Leaders

IDEOLOGY
STRONG WEAK
O
R A – SUPREMO (Bonifacio) C – ORG. MAN (Ver)
G STRONG
A SI – Decalogue WI – Without ideology
N SO – Katipunan SO – AFP
I
Z
A B- VISIONARY (Rizal) D – PARADUX
T WEAK para – faulty, irregular, disordered
dux – leader
I SI – Ideas into Writings
O WO – La Liga Filipina WI and WO = TRAPO
N

5. good/beneficial or venal/oppressive
a. pangulo or tyrant
b. prophet or false prophet
c. prince or dictator
d. patron or trapo

C. Socio-economic Background of Political and Administrative Leaders

1. to describe political and administrative elite groups
age, regional/provincial origins, gender, parentage, education, occupation, income level
2. how they are recruited to public office
3. access of individuals from different. socio-economic. classes to political/admin system
 D. Case Studies on Leadership Styles of Administrators
1. documents management or leadership styles of individual administrators
2. during specific periods of their careers
3. in a particular agency

E. Religious leaders in Local Sects – religious psychology

1. Iglesia Watawat ng Lahi – central doctrine revolves around Rizal
2. Iglesia ni Cristo (INC) – Felix Manalo
3. Phil. Benevolent Missionaries Asso. (PBMA) – Ruben Ecleo
4. Lapiang Malaya – Valentin delos Santos
5. Qualities of effective religious leaders
a. charismatic and persevering
b. eloquent and persuasive in speech
c. compassionate, humble, sincere, approachable and sociable
d. practical-minded, aggressive, shrewd, authoritarian but paternalistic, if necessary
e. good planners and dynamic organizers

F. Doctoral Dissertations and Master Theses on Leadership

various subject of inquiries

1. profiling of leaders
2. operationalizing leadership effectiveness
3. compare leadership styles/effects

G. Autobiography/Political Biography and Memoirs

personal level/intricacies

H. Leadership Studies of LCDP, UPCPA – research and publications

1. assessment of presidential performance
2. memoirs of individual political leaders
3. works of leaders in business community
4. anthology of Filipino socio-political thought

III. Leadership Studies in Community Settings

A. Perspectives
1. Perspective 1 – views community leadership as closely intertwined with national power
structures and relations, and as an appendage of the national body politics
2. Perspective 2 – centers on leaders who derive their position of power and influence from
an organized group in the community; through internal processes and mechanisms of the
organization to which the leader belongs

B. Socio-Ethnographic Studies on Community Leadership

1. two (2) sources of leadership and authority, legal laws and traditional practices/beliefs
2. two (2) sources combined by local leaders in doing their job
 C. Formal and Informal Leaders as the Dominant Authority Structure
1. formal – election/appointment
2. informal – influential despite not having been elected/appointed

D. Formation of Progressive Leader – informal/non-taditional NGOs

1. developmental – transformative, self-reliant, self determining
2. non-developmental – dole-outs, welfare

E. POs and NGOs as Reservoirs of Alternative Leaders

1. articulate problems/difficulties from sector represented
2. confront/resolve problems
3. make sacrifices for welfare of members maintain close ties

IV. Research Agenda for Leadership Studies

A. Trends
1. selection of political/administrative elite
2. leadership within organizational context
3. democratization look at local communities
4. leadership in other sectors of society
5. personality over issues

B. Areas of Inquiry
1. leader-citizens relations
2. analysis of opportunities, conditions and circumstances
3. roles of POs and NGOs Leaders
4. responsibility of Pos and NGOs
5. indigenous culture
 PS 150
Philippine National and Local Administration

LESSON #10 – Legislative Assemblies

and Public Policy Making

REFERENCE USED

Bautista, Victoria A., et. al, eds., Introduction to Public Administration in the Philippines:
A Reader. Quezon City: UPNCPAG, 2003.

I. Philippine Needs for Policy Studies

(Ocampo, Romeo B. “The Nature of and the Need for Policy Studies,” pp. 227-236)

A. Reasons
1. compelling respect for science
2. growing importance of public policy – interest, inquiry, advocacy
3. authority of government – expanding scope
widening array of government programs and projects for national development
4. not merely administrative tinkering in public administration
5. pay attention to form and substance of policy
a. public policy objectives – input [later technology, policy education]
b. policy process – formulation and implementation
c. policy outputs – predict and evaluate for further decision making and admin action

B. Systems Approach, Input-Process-Output/IPO Method

used in analyzing and evaluating policies

II. Public Policy Making: Congress

(Lavides, Myrna N. “The Congressional Committee and Philippine Policy Making: The Case of
the Anti-Rape Law,” pp. 237-254)

A. Congress – lawmaking body

1. Presidential, bicameral
2. System of checks and balances – among three (3) branches of gov’t & within legislative
3. Committees – work load of Congress
4. Alternative – NGOs/POs, rallies and marches, Malacanang
5. Problems – why alternative
a. people’s direct involvement and broader participation in policy process
b. dissatisfaction of policy outcomes
c. frustration about legislative – delay, inaction, inefficiency and ineffectiveness of
Congressional Committees
 B. Congressional Committees – patterned after US
1. Functions
a. workshop of lawmaking – buried or mature full chamber/plenary
b. hold hearings to obtain information and publicize issue
2. Aspects of Function
a. instigation and publicizing – advocacy, attention
b. formulation – legislative remedy for need
c. info gathering – collect data, cost/benefit, feasibility, difficulties, impact
d. interest aggregation – respond needs/wishes of affected groups and individuals
e. mobilization – premise, persuasion, control
3. Source of Committee Power and Influence
a. rules and procedures adopted by chamber – based on Committee on Rules
b. committee’s inherent gate keeping power – sit on or report out
c. power of Conference Committee – accept, reject, re-commit
d. inherent powers as a means of check and balance vis-à-vis co-equal branch (E,J)
1) language report 5) budget decisions & program evaluation
2) legislative veto 6) organization and reorganization
3) report requests 7) confirmation
4) hearing & investigation 8) impeachment

III. Policy Formulation

(Co, Edna E. “Management of Policy Formulation: The Generics Act of 1988,” pp. 255-282)

A. Facilitating Factors
1. political timing
2. ability and skills to negotiate with legislations
3. competence and expertise of leadership (Executive/Stakeholders)
4. leadership vision and personality
5. information technology and network

B. Deterrent
1. lack of persistence and resources to pursue information and education campaign
2. pressure (from US Senate and big business, in particular case of medicine)
3. political economy (of pharmaceuticals in PH)

IV. Public Policy and Government

(Ocampo, Romeo B. “ Public Policy and the Role of Government,” pp. 300-309)

A. Role – implementers/negotiators
B. Scope – disposal of power to implement – resources authority (human and financial)
C. Size of government – bureaucracy rightsizing, downsizing
 PS 150
Philippine National and Local Administration

LESSON #11 – Local Government Organization

REFERENCE USED
Bautista, Victoria A., et. al, eds., Introduction to Public Administration in the Philippines:
A Reader. Quezon City: UPNCPAG, 2003.

I. The Nature and State of Local Government

(Tapales, Proserpina D. “The Nature and State of Local Government,” pp. 309-323)

A. Delineation of Local Government

1. Local Government as Territorial and Political Subdivisions

a. Territorial Boundary – geographic subdivision; concern over the people living in a
particular locality
b. Presence of Higher Authority – gov’t of parts; supervised by national gov’t (unitary)

2. Local Government as Legal Authorities Providing Services

a. Legal authority to exercise their powers and regulate their own affairs
b. Depends on delegated authorities or on local capability

B. Rationale for Local Government

1. Provide services consistent with national policies

2. Provide for greater people’s participation
3. Promotion of rural development
- mobilization of local resources: program and project implementation
4. Dividing functions, powers and services by area
5. People identification – individually and by group (ethnicity)

C. Local Autonomy and Related Concepts

1. Local autonomy – degree of self-determination exercised by a local vis a vis central gov’t
2. Decentralization – prerequisite for local autonomy; 2 forms
a. Deconcentration – administrative in nature; transfer of function from national to
regional and local offices
b. Devolution – connotes political deconcentration; transfer of powers from central
gov’t to local gov’t units (LGUs): RA 7160 (Local Government Code of 1991)
devolved to LGUs 5 basic services
1) health
2) agriculture
3) maintenance of public works and highways
4) social welfare
5) environmental protection 5 basic services from LGUs!
1. Health!
2. Agriculture!
3. Maintenance of Public Works and Highways!
4. Social welfare!
5. Envrionmental Protection!
!
D. Local Government in the Philippines

1. Historical Background

a. Pre-Colonial
1) barangays – status of city states and local government
2) datus – head: exercised executive, legislative and judicial (ELJ) powers
3) panday – took care of technology, tools for domestic activities and for work
4) babaylan – took charge of cultural and scientific aspects of life (rituals,
medicine, astronomy)

b. Spanish Period
1) centralization
2) patronage – awarded parcel of lands to favored persons who assisted in the
pacification of the Philippine Islands (PI)
3) creating ascending hierarchy to fully colonize the country
a) cabildos (cities)
b) pueblos (municipalities)
c) provincias (provinces)
4) barangay
a) reduced into barrios and became lowest entity in the hierarchy
b) datus became cabeza de barangay
assist higher level of gov’t in collecting tribute

c. Malolos Republic (1st Philippine Republic)

1) gave more attention to the local units
2) autonomy could not be given retain unity of the islands; centralism remain

d. American Era – continued system of centralization

e. Post-American-Pre-Martial Law Period (1946-1972)

1) centralism remained
2) 1935 Constitution – mentioned local government in only one section
Article VII, Section 10: “President shall exercise general supervision over
local governments as may be provided by law.” Sec 16, Art X
3) until 1972
a) President and Congress determined the relationship between national and
local government by statutes and executive orders
b) Interpreted by courts – in accordance with the temper of times and justices

f. Martial Law Period

1) strengthened the powers of President over local government
2) powers strengthened despite an article in the 1973 Constitution and creation of
Department of Local Government and Community Development by PD 1
3) by PDs, President Marcos created and abolished offices
rapidly changing the relationship between local and national governments
 g. Post-Martial Law Period
1) national government more responsive to lower units of gov’t
2) 1987 Constitution – provision for special forms of gov’t in Muslim Mindanao
and Cordillera
3) Congress passed Local Government Code of 1991 (RA 7160)
provided devolution of powers and services

2. Structures and Functions

a. Creation of LGUs – Philippines remains a unitary state

Land Area Population Income

LGU (certified by Land (certified by NSO) (certified by Dept
Mgt Bureau) of Finance)
Province not < 2,000 sq km not < 250,000 not < P 20 M
City not < 100 sq km not < 150,000 not < P 20 M*
Municipality not < 50 sq km not < 25,000 not < P 2.5 M
Barangay not < 2,000
in Metro Manila not < 5,000
*per RA 9009, P100 M for
the last 2 consecutive years

1) residents affected should approve the measure plebiscite

2) creation of LGU: not reduce land area, population and income of original unit to
< minimum requirement

b. Tiers of Government
1) Province – intermediate unit
a) supervision to municipalities and component cities
b) perform services for national gov’t
2) Cities/Municipalities
a) basic units of local gov’t
b) perform services for people living together in a community
3) Barangays
a) sub-municipal unit
b) provides opportunity for face to face interaction among people
4) Highly Urbanized Cities
a) viable enough to perform their functions and services
b) allowed to retain autonomy from province
c) not < 200,000 inhabitants and P 50M income
d) don’t vote for municipal officials
5) Component Cities – under direct supervision of province
c. Officials

1) Elected for a 3 year term

a) Province – Governor, Vice Governor, Sangguniang Panlalawigan
b) Municipalities/Cities – Mayor, Vice Mayor, Sangguniang Bayan/Panlunsod

2) Ex-officio
a) Local president of league of barangay
b) President of local federation of Sangguniang Kabataan (SK)
c) President of federation of Sanggunian Members
d) Three (3) sectoral representatives
i. Women
ii. Workers – agricultural/industrial
iii. Special Sector – indigenous groups, urban poor, persons with disability

3) Vice Chief Executive – presiding officers of respective sanggunian

4) Appointive Officials – Sec, Treasurer, Assessor, Engineer, Health Officer etc

d. Services
1) basic units of gov’t – sanitation, operate markets, other utilities
2) LGC ’91 devolved to LGUs admin of 5 basic services (SEE IC2b)
3) appointment – done by local chief executives
4) salaries – local funds

e. Funds
1) primary source - Internal Revenue Allotment (IRA): share from tax collection of
national government
34% - municipalities
23% - cities
23% - provinces
20% - barangays

2) criteria for dividing IRA among same group (i.e. among provinces themselves)
50% - population
25% - area
25% - equal sharing

f. Special LGUs
1) ARMM – Autonomous Region in Muslim Mindanao
a) RA 6734: Sulu, Tawi-Tawi, Lanao del Sur, Maguindanao
b) RA 9054: added Basilan and Marawi City, plebiscite on 14 August 2001
c) RA 11054: Bangsamoro Organic Law (BOL) established
Bangsamoro ARMM (BARMM) resulting to addition of
Cotabato City and 63 barangays of North Cotabato
 2) MMDA – Metro Manila development Authority
a) Metro Manila Commission (MMC) – 1975, by virtue of PD 825
garbage disposal, traffic mgt., flood control and zoning
b) Metro Manila Authority (MMA) – 1986, by virtue of EO 392
ineffective mechanism, chair rotating among mayors
c) MMDA – RA 7924
dev’t planning, transportation and traffic mgt., solid waste disposal, flood
control and sewerage mgt., urban renewal, health and sanitation, pollution
control, public safety

II. Reform Efforts on Local Government in the Philippines

(Reforma, Mila A. “Reforming Government: New Concepts and Practices in Local Public
Administration in the Philippines,” pp. 355-366)

A. Decentralization
B. Privatization
1. sale of non-performing assets (NPAs) – loss, liabilities/transfer price/book value
2. gov’t corporations – limited takers, few profit oriented, limited capital market
3. gov’t – no business in getting into business
a. Build Operate Transfer (BOT) Scheme
b. private sector as main engine of growth – gov’t comes in when private sector
unwilling and unable to provide goods and services
C. Use of Alternative Institutions for Service Delivery
Non-Government Organizations (NGOs) and People’s Organization (POs)
1. gov’t inadequacy and ineffectiveness
2. privatization of economy
3. decentralization of powers

III. Enabling Role of Local Governments

(Legaspi, Perla E. “The Enabling Role of Local Governments,” pp. 367-376)

Enabling – beyond the traditional role of direct service provider; different or more flexible
ways of operating meeting the needs of local communities

A. Strategic Orientation
1. traditional, functions, geographic boundaries
2. work with: inter-local gov’t; NGOs, POs, VGOs; national gov’t agencies

B. Focus on Determining An Effective Response

1. collaboration with other agencies on new programs and new services
2. provide financial assistance/grants
3. create new structures/bodies for service delivery
4. provide public information on services and programs
5. provide forum for discussion of community issues and concerns

C. Settling Standards and Performance

 1. ensure achievement of goals and objectives
2. involve public
3. improve public accountability

D. Developing Partnerships
long term relationship with and among agencies and orgs (public, private, voluntary)

E. Influencing, Interpreting and Implementing the Regulatory Framework

lobby, disseminate/explain, consistently enforced

F. Encouraging Access and Involvement

G. Models of Enabling Authority

1. Traditional Bureaucratic Authority – local gov’t as direct service provider

2. Residual Enabling Authority – local authority as provider of last resort
private market, public corporation, NGOs, Gov’t agencies
3. Market Oriented Enabling Authority – external market eco. dev’t: negotiates contract
with private sector
4. Community Oriented Enabling Authority
a. meet various needs, problems and concerns of community
b. citizen participation in decision making processes
c. through NGOs, POs, VGOs, private sector, civil society

H. Role of Philippine Local Government

1. before passage of LGC ’91 – traditional bureaucratic enabling type

2. after LGC ’91 – move to market and community oriented enabling type
a. alternative sources of revenue – generate added resources, not tax based
b. people participation institutionalized
c. devolved powers – gave local gov’t more options in governing communities
 PS 150
Philippine National and Local Administration

LESSON #12/13 – Public Personnel Administration

REFERENCE USED

Bautista, Victoria A., et. al, eds., Introduction to Public Administration in the Philippines:
A Reader. Quezon City: UPNCPAG, 2003.

I. Philippine Civil Service

(Endriga, Jose N. “Stability and Change: The Civil Service in the Philippines,” pp. 393-414)

A. Trends
1. positive laws and actions on one hand; negative bureaucratic behavior on the other
2. basic conflict between standard (theory) and ability to maintain them (practice)
3. written laws with high standard
obey law and punish offenders not palpable in independent years

B. Historical Approach – covered in Danilo R. Reyes Articles in Lesson #7 pp. 38-65 (* given)
pp. 51-73 (** given)
1. Spanish Colonial Period – predominantly negative character
a. centralized bureaucracy *
b. patronage system *
– give parcel of lands to “assets”, assistant, aide in pacification of islands
c. idealism and expediency – breeds patronage *
d. colonial bureaucracy – colonial gov’t dependent on home gov’t
e. control on colony
1) colonial positions to persons of approved ancestry, religion and connections
2) reliance upon the church as a check upon the secular regime
– parish priest very powerful; no separation of church and state
3) constant transfer of important officials after brief terms in office
4) bureaucrats write reports to king re: official conduct & private lives of their colleagues
f. check on behavior of colonial bureaucrats
1) visitador general
– official from Spain vested with investigatory, judicial and executory powers
2) residencia – bureaucrats render account of their conduct while in office

2. American Regime
a. created Civil Service System in the Philippines *
b. separation of church and state *
c. administration of PI in the hands of non-political civil service *
 d. finished product – efficiency, economy, merit (competitive exam) and concept of
political neutrality *
1) Pendleton Act of 1883
2) Civil Service Act (1900) – Act #5 of Philippine Commission; bureau in 1905
e. centralization continued from Spanish Era – classified by structure and area *
f. participation of Filipinos – Filipinization under Harrison (1913-1921)
1) public school system education serve as infrastructure
2) unattractiveness of Philippines to American Civil Servants
– even if they were paid higher
3) benefits and prestige for Filipinos
g. strengthened during Commonwealth **
1) independence and permanence of civil service
1935 Constitution: provision on civil service
a) Bureau of Civil Service – from Director to Commissioner
b) from 2nd class to 1st class bureau
c) power to discipline subordinate officers by removal, suspension and reduction
in rank and in pay
2) civil service to all branches and subdivision of gov’t
3) competitive exams to all positions

3. Independent Republic**
a. emergence of 2 party system – bureaucracy vulnerable to partisan politics/spoils system
b. Bell Mission
1) general state country: economic and financial problems of the country
2) UP Institute of Public Administration (IPA) – set up in 1952
c. Civil Service Act of 1959 (RA2260)
1) amending, repealing or improving existing provisions in Civil Service Law
2) public service focus – more economic and more effective
d. graft and corruption – 50/50 Plan+1950s to 1960s full swing at all levels: low (fixers);
middle (fake documents); high (misuse of public funds/corrupt transactions)
e. anti-graft agencies – ineffective and poor record due to
1) organizational instability
2) frequent changes in leadership
3) political pressures in employee recruitment
4) public apathy
5) strained relationship among judiciary, legislative and executive (gov’t agencies)

4. Martial Law Years **

a. Presidential Decree (PD) 1 – Integrated Reorganization Plan
1) decentralized national government less in OP, more regional districts
2) standardized organization and operation, staff services planning, finance and
management, administrative and technical services
3) facilitated preparation and execution of national development production
National Economic and Development Authority (NEDA) from National
Economic Council and Presidential Economic Staff
4) generated savings – abolition, transfer of functions and mergers of agencies
 b. civil service purges
1) 1973 – 1,500 civil servants summarily dismissed
2) 1975 – large group of gov’t personnel purged including Cabinet
c. corruption remained – BIR, Board of Transportation
1) creation of Constitutional Bodies
a) Tanodbayan (Ombudsman)} independent of the President;
b) Sandiganbayan } organizational stability by constitutional provision
2) should be initiated by citizens; therefore, no big fish

II. Philippine Bureaucracy: Number and Size

(Sto. Tomas, Patricia A. “The Philippine Bureaucracy: A Question of Numbers,” pp. 415-437)

A. Size and Good Government

1. size has a direct correlation with cost: directly proportional
2. size affects efficiency of service delivery
– has diminishing returns: beyond a certain optimum level, we get less and less value
from each additional person
3. size tells us where our priorities are
4. size determines our structures, processes, procedures, workflow and frontline operations
5. size determinant of policy interventions that may be needed to correct certain situations

B. Findings and Interpretation

1. Philippine Bureaucracy
a. not really bloated if size of clientele is considered (1.5 M to serve 64 M at that time)
b. cost center so pressure to improve performance
c. else, cut numbers
2. highly centralized but moving to local gov’t – salaries paid out of national gov’t
3. shrinking – worldwide downsizing as norm
arbitration law, austerity measures (freeze hiring), stiff DBM control in personnel
expenditure
4. more professionalized bureaucracy
a. 94% of career bureaucracy: permanent (compliance with standards and qualifications)
b. 90% of senior executive/managers (3rd level): temporary
5. Professionalizing and building up technical capabilities
a. insulating from influence of partisan politics
b. local salaries have to be improved – just % of national counterparts
c. career path to LGU officials and employees
d. expansion of professional career executive service
e. realization of significant savings in personnel costs – unfilled vacancies
III. The Political Economy and Civil Service Reform

REFERENCE USED

Briones, Leonor M., “ The Political Economy and Civil Service Reform,” in Introduction to
Public Administration in the Philippines: A Reader, Third Edition, Volume I, Danilo dela
Rosa Reyes et. al, eds, Quezon City, UPNCPAG, 2015, pp. 309-327.

A. Introduction

1. Two simultaneous but opposing developments in the civil service

a. reforms through Constitution, laws, and issuances from the Civil Service
Commission (CSC)
1) extol merit and fitness
2) guarantee equal opportunities for public service
3) prohibit political dynasties
b. events triggered by forces from the political and economic system reverse or
contradict such reforms

2. Two tracks in the studies made about civil service and the CSC
a. studies of reforms in the civil service tend to focus on formal, legalistic aspects and
less on the political, social, and economic factors
influence the success or failure of such reforms
b. exposés and reports of investigative journalists on abuse of pol & eco power
endlessly draw attention to defects of the political system and shenanigans of
political personalities

3. Civil service cannot be separated from the political, economic, and social system
that created it
classical approach of studying the political economy appropriate and necessary

4. Objective of the study – to provide an assessment of the social, economic, and political
factors and actors that have impinged, and may impinge:
a. on civil service policy formulation, reform initiatives, and human resource
management practices
b. at the national government, government-owned and/or –controlled corporations
(GOCC)/government financial institutions (GFI0, and local government unit (LGU)
levels in the Philippines

B. Review of Literature

a. The History of the Civil Service Commission and Reform

examine the civil service and the CSC in terms of political, economic, and social
factors during different stages in Philippine history
 a. Onofre D. Corpuz
1) eminent political scientist and historian
2) The Bureaucracy in the Philippines (1957) – bureaucracy as a social institution
a) fatal defect of Spanish bureaucracy – private interests and personal
behavior of its members effectively subverted the declared principles of
the colonial administration
b) weakness of bureaucracy – vulnerability to nepotism, exacerbated by the
institution of godfathers, carried over from the Spanish period; and the
spoils system in the civil service
c) highly vulnerable to attack by external parties (politicians) who utilized
powers of the legislative and executive branches of government to tamper
with the merit principle of the service

b. Jose N. Endriga
1) historian and public administration scholar
2) A History of the Civil Service in the Philippines (1985)
3) “civil service system in the Philippines as we know it today is a creation of the
American regime in the country”
4) recognized its historical antecedents, especially during the Spanish colonial
period
5) values introduced by the Americans were efficiency, economy and merit, in
addition to political neutrality
6) lamented the juxtaposition of positive laws on the one hand and negative
bureaucratic behavior on the other hand
7) basic conflict between the standards that we hold in theory and our ability to
maintain them in practice

c. Jaime C. Veneracion
1) political scientist and historian
2) Merit or Patronage: A History of the Philippine Civil Service (1988)
3) explicitly identified dynamics of politics and economics in PH Civil Service
4) any link with a past institution should be with the revolutionary government:
a) fair selection of employees through exam
b) routing of papers, etc.
c) instilling of pride, patriotism and honesty demanded of all revolutionaries
5) more than mere reformulation of structures – provide the atmosphere and the
proper ideological support for any reformist actions within the context of a
larger society

2. Reorganizations: A Never-Ending Story

a. Jose V. Abueva – Perspective in Government Reorganization (1969)
reorganization efforts which ignore the political system and political processes
are bound to fail
b. Philippine Journal of Public Administration – replete with articles and studies on
comprehensive as well as partial reorganizations; explain why all these
reorganization efforts are perceived to be less than successful
 c. Renato Constantino – A Filipino Vision of Development (1991)
organized a group of academicians, activists, and concerned citizens; propose a
nationalist alternative to development including institutional change, participatory
democracy and perspectives on reorganization
d. Jose P. Tabbada – From Reorganization to Administrative Reform and
Modernization (1999)
head of a team from the Center for Policy and Executive Development of the
University of the Philippines (UP) National College of Public Administration and
Governance (NCPAG); urge the move towards administrative reform and
modernization following an assessment of the perceived “failures” of earlier
reorganization efforts

3. Bureaucracy and Democracy

a. Dr. Ledevina V. Cariño – Bureaucracy for Democracy: The Dynamics of
Executive-Bureaucracy Interaction During Government Transitions (1992)
1) explains why civil service reforms fail in spite of technical soundness and good
intentions
2) comparative approach; focus on dynamics of executive-bureaucracy interaction
3) interplay of political economy forces with the civil service
4) classifies transitions into: normal successions, authoritarian successions, and
redemocratization successions
b. Armand Fabella – a noted economist and reorganization expert led a team in
crafting The Integrated Reorganization Plan during earlier part of Martial Law
1) introduced decentralization
2) creation of regional development councils
3) attachment of public enterprises to departments
4) creation of career executive service
5) amended repeatedly, to the despair of the professionals who participated in the
exercise
6) followed by a massive purge
c. Redemocratization process under President Corazon C. Aquino
1) exhibited the same pattern: reorganization followed by a tumultuous purge
2) objective – to “de-Marcosify” the country and cleanse it of Marcosian
influence
3) New 1987 Constitution reaffirms basic principles of merit

4. Politics, Business, and the Bureaucracy

a. Belinda A. Aquino – Politics of Plunder: The Philippines under Marcos (1987)
1) reveals in excruciating details the dynamics of the systemic plunder of the
Philippines and the manipulation of the bureaucracy
2) government agencies and government officials were unscrupulously used to
loot the treasury, control key sectors of the economy, and siphon national
wealth out of the country
b. Ricardo Manapat – Some Are Smarter Than Others (1991)
subjugation of the bureaucracy by the dominant political power for economic
gain clearly illustrated here
 c. Eric Gutierrez – The Ties That Bind: A Guide to Family, Business and Other
Interests in the Ninth House of Representatives (1994)
confirmed what the public had been aware of all the time: family, business, and
other economic ties of congressional representatives as well as their links with the
bureaucracy
d. Sheila S. Coronel
1) Pork and Other Perks: Corruption and Governance in the Philippines
a) contains hard-hitting reports on examples of political and bureaucratic
abuse ranging from pork barrel to spectacular scams
b) ends with an essay on citizen groups who have organized themselves
against corrupton
2) Betrayals of the Public Trust: Investigative Reports on Corruption (2000)
contains explanations of reporting techniques used

C. The Legal Bases of the Civil Service System in the Philippines

foundations for the modern civil service were actually laid in 1866 with the passage of a
Royal Decree which integrated the civil service of the colony with that of the home
government (Veneracion, 1988)

1. The Malolos Constitution of 1899 – provisions regarding the civil service: Title VII
(The Executive Power); Title VIII (The President of the Republic); Title IX (The
Secretaries of Government) and Title XII (Administration of the State)

2. The 1935 Constitution and Commonwealth Act 177 (CA 177)

a. Article XI – on civil service reiterated existing legal provisions like: appointment
according to merit and fitness to be determined by competitive exam; the ban on
partisan political activities; prohibition of double compensation, and so on
b. CA 177 – “the civil service reformer’s dream come true…it writes into the law of
the land virtually every safeguard of the merit system”

3. Getting “Betterer”: The 1973 Constitution

a. provisions on the civil service were expanded from four to eight sections
b. reiteration of the original provisions in the 1935 Constitution
c. new features included:
1) provisions for the selection of the members of the Commission
2) right to self-organization of government employees
3) guaranteed protection for employees
4) prohibition against partisan political activity
5) standardization of compensation for government officials
6) prohibition of elective officials from appointment to a public office
7) ban on double compensation
8) prohibition of losing candidate from accepting appointments in public office
within a period of one year
d. Article XII – Accountability of Public Officers
9) contains the immortal line “Public office is a public trust.”
10) entire section was adopted in 1987 Constitution
4. Freedom for the Civil Servant? The 1986 Freedom Constitution
a. revolutionary government was declared
b. legislature was closed
c. most, if not all, of the provisions on the civil service were adopted
d. massive reorganization was set in motion (Article III) to “promote economy,
efficiency, and the eradication of graft and corruption”
e. reorganization followed by a purge which left the civil service shaken and turned
inside out

5. “Betterer and Betterer” Legal Provisions: The 1987 Constitution

a. Article IX(B) adopted all of the provisions of the 1973 Constitution on the civil
service
b. Section 3, Article IX(B) – explicitly provides for the establishment of a Career
Service; builds on the reforms initiated by Marcos when he set up the Career
Executive Service
c. Sections 14, 18, 26, 27 and 28 of Article II (Declaration of Principles and State
Policies) – contain provisions related to the civil service
1) Section 14 – role of women in nation building
2) Section 18 – protection of the workers’ rights & promotion of workers’ welfare
3) Section 26 – equal access to opportunities for public service; prohibition of
political dynasties
4) Section 27 – maintenance of honesty and integrity in the public service; and
positive and effective measures against graft and corruption
5) Section 28 – policy of full public disclosure of all transactions involving public
interest

6. Administrative Code of 1987 (Executive Order 292)

a. codification of all laws on the administration of the government in one
comprehensive volume
b. integrates in one volume all the laws affecting agencies of the Executive Branch,
including the Office of the President, the constitutional commissions, the Office of
the Ombudsman, and the National Economic and Development Authority (NEDA)
c. Book V, Title 1, Subtitle 1A – specifically on the CSC: different aspects of human
resource management at national and agency level

7. Some Other Laws Related to the Civil Service

a. The Code of Conduct and Ethical Standards for Public Officials and Employees
(Republic Act/RA 6713)
1) builds on RA 3019 – The Anti-Graft and Corrupt Practices Act
2) Section 6/11 – system of incentives and rewards/penalties
3) Section 7 – litany of prohibited acts and transactions
4) Section 8 public officials and employees to submit two documents under oath:
a) Statement of Assets, Liabilities, and Net Worth (SALN)
b) Disclosure of Business Interests and Financial Connections
5) Section 9 – provides for divestment from shareholdings or interest in any
private business enterprise
 b. Women in Development
1) RA 7192 – Women in Development and Nation Building Act
a) promotes the integration of women as full and equal partners of men in
development and nation building
b) agencies are required to allocate at least 5% of their total budget to
activities related to gender and development (GAD)
2) RA 7877 – Anti-Sexual Harassment Act of 1995
majority of the employees in the civil service are women
c. The Proposed Civil Service Code (Senate Bill 2132)
1) codification of all existing laws and regulations on the civil service
2) known as The Civil Service Code of the Philippines

8. Implementation of Formal Rules at the Agency Level

a. head of agency is responsible for implementing the provisions of the laws on the
civil service in his/her agency
b. assisted by a Human Resource Development Office – oversees recruitment and
selection, training, performance evaluation, and disciplinary action
c. can always seek the technical assistance from the CSC
d. all agencies have mechanisms for incentives and rewards as well as for processing
complaints against officials and employees
e. final arbiter in disciplinary cases is the CSC; awards administered by the CSC itself

9. Crafting Civil Service Codes, Laws, and Implementing Rules and Regulations (IRRs)
a. CSC initiative in drafting proposed codes and laws since it is the interested party
b. process of consulting experts, constituents, and in-house staff
c. if necessary, public hearings and meeting be conducted
d. codes and laws undergo the same process since the former are actually made up of
consolidated and related laws
e. submission to both houses of Congress – pass into law
f. IRRs need to be crafted in order to guide agencies – in great detail the mechanics;
1) much longer than the law itself;
2) knitty gritty including possible ramifications and complications during
implementation have to be anticipated
3) much detail necessary so these can be uniformly adopted

D. Waking Up From the Dream: Actual Practices in the Civil Service

1. Actual Practices During Normal Successions
a. executive appointed agency heads and aides – “justified as ‘policy determining,
highly technical or primarily confidential,’ qualities
exempted the appointed from civil service requirements
b. others were hired as ‘casuals,’ employees who enjoyed de facto permanence due to
the regular renewal of their temporary ‘emergency’ appointments”
c. when a president comes along, s/he could summarily remove and replace them with
her/his own people without much trouble
 d. reorganization
1) can be comprehensive or partial
2) launched for objectives of economy, efficiency, and effectiveness
3) 0opportunities to ease out politically unpalatable persons or unwanted orgs

2. Actual Practices During An Authoritarian Succession

a. Marcos initiated sweeping reforms of the civil service which he enshrined in the
Constitution himself
b. institutionalization of Career Service
c. creation of Development Academy of the Philippines (DAP) – to develop training
programs for different levels of career officials
d. Philippine Commission on Reorganization (PCR) – Marcos’ first administrative act
when he declared martial law in order to formulate a reorganization plan for the
entire bureaucracy
e. Armand Fabella – Head, PCR in crafting the Integrated Reorganization Plan (IRP)
1) introduced the concept of regional offices
2) strengthened decentralization
3) rationalized the corporate sector
f. IRP – torn to pieces in a series of political decisions with a total of 67 amendments
(11 Presidential Decrees/PDs between September and December 1972; 13 in 1973;
a high of 31 in 1974; and 12 in 1975)
g. PD 6 allowed summary dismissal; purges took place in 1973 and 1975 saw the
removal of thousands of personnel
h. Marcos innovation of courtesy resignation – facilitated wholesale removal of bad,
as well as good, civil servants
i. damage inflicted by the reorganizations and purges on the bureaucracy – matched
by increasing public knowledge that Marcos and his cohorts were looting the
economy, even as civil service reforms were institutionalized in the Constitution

3. Redemocratization and the Civil Service

a. Aquino’s cabinet capitalized on the revolutionary nature of government and
followed the Marcos Model of summary dismissal (instead of the pre-martial law
tradition of retrenchment of casuals and appointment of transients to political
positions)
b. Aquino reorganization – “de-Marcosification” as the major for the wholesale purge
of government officials
1) summary dismissals
2) abolition of positions in agencies
3) frequent changes of heads of agencies
4) creation of even more positions
c. even LGUs were not spared – Officers-In-Charge (OICs)
d. distinction between creer and non-career officials was blurred
e. three laws emerged
1) RA 6654 – Repeal of Provision for Summary Dismissals
2) RA 6656 – Security of Tenure of Civil Service Officers and Employees
3) RA 6683 – Benefits for Persons “Reorganized Out” of Government
 4. More Normal Successions: Ramos and Estrada
a. culture of wholesale changes of top officials, including career executives, had been
inseparably imbedded in the political culture
b. appointments are considered the preserve of the President himself – placing
political appointees in positions requiring professional qualification became well
entrenched
President Ramos personally chose and appointed a division chief at the Bureau
of Customs
c. investigative journalists started exposing political inroads into the civil service
unholy links between political power, economic plunder, and the bureaucracy
d. non-government organizations (NGOs), people’s organizations (POs), academics,
and other members of civil society have sustained their campaigns against abuse of
political power
aberrations during the Ramos years are very well documented (Amari Deal)
e. Joseph Estrada added own personal embellishments to existing political culture
1) four “other women” (Ramos had one “other woman”)
2) had the ost number of presidential consultants, assistants, and advisers

5. The Civil Service and GMA: Worser and Worser?

a. constitutional issues hounded her administration including its own legitimacy
b. ouster of Estrada saw a repetition of the Marcos and Aquino syndrome
1) widespread termination of officials
2) reorganization on the grounds of “efficiency”
3) appointment of more people to the bureaucracy
4) assignments to positions based on political loyalty

E. Conclusion: Moving Forward

1. Big Dreams: The Role of Civil Society and the Private Sector
a. citizens have taken upon themselves the burden of taking action on pol/soc issues
b. link political reforms with civil service reforms
c. main actors in civil society – NGOs, POs, the church, the academe and the media
1) doing wonderful work in the realm of politics, corruption, economic crises,
environment, women, and many other public issues
2) need to turn their attention to civil service reform

2. Small Dreams
a. Constitutional amendments
b. Intensified communication campaign on civil service reforms
c. Campaign for the Civil Service Code
d. Bringing back the prestige of Career Executive Service Officers (CESOs)
e. Bridging the gap in salary scales
f. Role of all sectors and society itself – all sectors have to pitch in so society itself is
reformed
 PS 150
Philippine National and Local Administration

LESSON #14 – Fiscal Administration:

National and Local Perspectives

REFERENCE USED

Bautista, Victoria A., et. al, eds., Introduction to Public Administration in the Philippines:
A Reader. Quezon City: UPNCPAG, 2003.

I. National Perspective
(Briones, Leonor M. “Fiscal and Monetary Policies as Constraints to Dev’t ,” pp. 554-567)

A. Public Finance
1. Definition – refers to the income and outgo of gov’t in the pursuit of national objectives
2. Components
a. inflow (of financial resources) – taxes and other revenues
b. outflow (of financial resources) – expenditures to finance goods and services
3. Cycle – five (5) step process
a. formulation of fiscal policy
b. generation of revenue from taxation and other services
c. expenditures of funds through national budget
d. public borrowings
e. accountability

B. Fiscal and Monetary Policies

1. Definitions
a. Fiscal Policy – the mix of policies on taxation and other revenue, expenditure and
borrowing which is intended to promote stabilization and development of the economy
b. Monetary Policy – generally understood to be that which influences the level of money
supply in the economy for the attainment of economic and development objectives

2. Considerations/Major Influences
a. Structural Adjustment Programs (SAPs) negotiated with IMF (F/M)
b. PD 1177 – automatic appropriation of the debt service; dictate up to now (F/M)
c. Policies on Tax and Non-Tax Revenues (main source of revenues (F)
1) Taxes – classified into two (2)
a) Direct taxes – income, wealth and property (income/property taxes)
b) Indirect taxes – sales and excise taxes
2) Non-Tax – grants, user charges, income from GOCCs, proceeds from privatization
d. Monitoring of Money Supply (M)
1) high money supply can result to inflation
2) limited money supply can drive up interest rates
 C. Challenges on Fiscal and Monetary Policies
1. To the gov’t
a. extricate fiscal and monetary policies from vise like grip of stabilization programs and
SAPs presided over by IMF and multilateral institutions
b. do away with anachronistic (chronologically out of place) fiscal policy which traces its
roots from PD 1177 (automatic appropriation for debt service)
c. recognize formulation and implementation of and monetary policies as an
indispensable part of democratic process; not an exclusive domain of technocrats;
citizen participation
d. rethink fiscal and monetary policy options
1) go beyond debt cap/debt moratorium alternatives
a) lower domestic interest rate
b) restructure huge domestic debt
c) negotiate reduction of Philippine debt to Japan
d) relax tight fiscal targets (magnitude of expenditure and level of deficit)
e) issue of behest loans must be pursued relentlessly
2) orient priorities of public spending toward development
a) correct urban bias growth through budget and expenditure policy
b) bring dev’t to and sourced from rural areas
3) rethink current tax policy
a) collection improvement
b) progressive
4) relate tax policy to environment objectives
a) higher rates – dependents
b) penalties – use/harm environment
c) tax incentives – environment friendly
5) relaxation of monetary targets
a) expanded expenditures for economic and social development
b) influence foreign exchange (forex) rates
2. To progressive groups
a. second look at theories about budget deficits and surpluses; money supply and
inflation; forex rates and devaluation
b. continually reexamine alternative debt policies
c. continue discussion and debate on fiscal and monetary policies
d. keep a continuing balance between: analytic rigor and pro-people objectives; what is
technically feasible and politically correct

II. Local Perspective

(Cuaresma, Jocelyn P. “Transforming Local Finance,” pp. 577-613)

A. Local Finance
1. fiscal decentralization
2. powers and functions devolved to local gov’ts
3. revenue and expenditure shares
4. overall contribution of local gov’ts to the dev’t of national economy
B. Local Gov’t Revenues
1. Internal Revenue Allotment (IRA)
2. Taxes – Real Property Tax, Business Tax, License Fees, Community Tax,
Amusement Tax, Grant/Aid, Borrowings
3. Non-Tax Revenues
4. Operation/Miscellaneous Income

C. Local Gov’t Expenditures

1. Object Distribution
a. Personal Services (PS)
b. Maintenance and Other Operating Expenses (MOOE)
c. Capital Outlay (CO)
2. Sector Expenditure
a. General Public Services
b. Economic Services
c. Social Services
d. Other Services

D. Persisting Patterns
1. Local revenue remains inadequate – little tax base; limited taxing powers;
inefficient revenue collection
2. Real Property Tax (RPT) Collection – low efficiency; outdated valuation
3. Reliance on one or two local taxes for revenues – RPT; business tax, license fee
4. Treat IRA as dole-out – no greater effort to raise revenue through taxing powers
5. Access to borrowing remains restricted
6. Absence of development plan
7. Traditional Expenditure – 20% Development Fund
8. Expediency remain focused on general gov’t expenditures
9. Lack framework for credit financing; limited information about ODA
(Official Dev’t Assistance)

E. Challenges to Local Government Units (LGUs)

1. Prepare and adopt master dev’t plan
2. Conduct a socio-economic assessment of local economy
3. Conduct a periodic assessment of the state and condition of infrastructure
and other social projects
4. Look at private sector for service delivery – Build Operate Transfer (BOT); public-private
partnership (PPP); more private sector investment
5. Inter-LGU cooperation for greater service delivery