Philippine Administrative Thought and

Institutions

MPA 621-Philosophy and Science of Public Administration

Prepared by:
Garcia, Rochene I.
Tolentino, Diane Sheryll T.
 Presentation
Overview
• The History and Development of the Philippine Administrative System
• Definition of the Philippine Administrative System
• The PAS: Political and Administrative Accountability
• The PAS: Structure and Functions
• The PAS: Government Reorganization
• The PAS: The National Budget Cycle

Alfiler, Ma. Concepcion P. "Philippine Administrative System" , 1999

 Learning Objectives
• Build understanding and appreciation of the historical origins of, the fundamental indigenous values, and the national and

international context (social, cultural, political and economic) defining and affecting the Philippine Administrative System.
• Describe and analyze the formal structure, processes and internal dynamics facing the Philippine Administrative

System and determine how the administrative system can better respond to the Philippine society’s changing
needs and dynamics.
• Establish communication and analytical skills used in the Philippine Administrative System by planners, policy

analysts and public administrators to resolve contemporary issues.

The Philippine Administrative
System:
Its History and Development
The History and Development of the Philippine Administrative System

• The Spanish Colonial Period

• The American Colonial Period

• The Early Republic

• The Authoritarian Regime

• The Aquino Regime

The Spanish Colonial Period

The Spanish colonial government established the social institution of bureaucracy. Consisting mainly of Spaniards, this

bureaucracy was distinct from the masses of the people by their race, their special calling, and their class.
The Spanish Colonial Period

Although it was instituted principally to administer the colony and to achieve the colonial objectives of the Spanish government,

this colonial bureaucracy had a fatal flaw: the private and personal interests of the members led them to subvert the declared

colonial administration. The moral corruption of its members was the fundamental weakness of the colonial bureaucracy.
The Spanish Colonial Period

The colonial administration was "bankrupt in practical politics, because the officials were dishonest in 

inspiration, and either incompetent or authoritarian in practice."
Characteristics of Spanish Colonial Bureaucracy

• Spain’s colonial objectives which left much room for the bureaucrats to exercise discretion on how they would interpret or

implement policies enunciated in Spain;

• The philosophy regarding public office of the Spanish regime;

• The dependence of the colonial office in Manila on Spain;

• It’s highly centralized organization

• The negativism of the regime against the Filipinos

Spanish Colonial bureaucracy was defined as an
organization of:

• Implemented conflicting imperial expectations about what was expedient for the bureaucracy.

• Was driven by a public office ideology that gave the king the right to dispose of public office as his personal property

• Was Spain dependent. The distance between Manila and Spain provided ample powers and authority to the colonial officials.
Spanish Colonial bureaucracy was defined as an
organization of:

• Had a highly centralized character.

• Was defined by Spaniards ' negativism towards Filipinos, which originated from their belief that the Indio's were culturally and

politically inferior.
The American Colonial Period

American expansion was defined as one pursued "without a constant intention" or a particular colonial goal.

Explicit interests existed, as demonstrated by company, church groups, and even military strategists. And there was no consensus

about how to go about the colonial venture.

Characteristics of American Bureaucracy
• No individual will or influence was dominant, unlike in the Spanish colonial period, when the governor general, the archbishops,

and the parish priests held positions of power. This was because the administration was governed by the law and not by any

personal decisions and actions of specific officials.

Characteristics of American Bureaucracy
• The new civil service was to develop independent of clerical intervention.

• In its early years, the civil government inherited civilians and discharged soldiers who were employed by the previous American

military government.
Characteristics of American Bureaucracy
• Political interference and the spoiling scheme were removed from the new civil service during the American colonial period.

• Government officials and employees were prohibited from engaging in private business unless permission was obtained by the

governor-general.
Characteristics of American Bureaucracy
• Somehow, the relationship between the Civil Service Office, which implemented changes in the colonial bureaucracy and other

bureaus, in particular the heads of executive offices and offices, was strained. This was due to a strong drive by the Civil Service

Office to overhaul the civil service, which was not necessarily acceptable.
The Early Republic

From the American colonial period, we move on to the experiences of the early republic after the United States granted the

Philippines its independence in 1946. The nation had just been through the Second World War, which had caused significant

physical damage and economic decline. While these factors would present daunting challenges to the public sector, the advent of a

bi-party system soon after independence would have had a significant impact on the character and essence of the civil service.
Characteristics of The Early Republic
1. Nepotism

2. Merit System

3. Normalcy

4. Element of the environment that affected all government officials

5. Two features of the bureaucracy

a. centralized organization

b. administration of laws
Characteristics of The Early Republic
6. The strong influence of the American colonial system

7. Instrument of social change and innovations when it was placed under Filipino control.

8. No distinct social class or have class attributes.

9. Vulnerable to attacks by the politician

The Authoritarian Regime

On September 21, 1972, Ferdinand Marcos, using the powers bestowed upon him by the Constitution, proclaimed and put the

whole country under martial law. He dissolved Congress and arrested political leaders who disagreed or were possible

oppositionists to his country's political plans. He pro-claimed his policy of establishing a "New World" through a central revolution,

with his government leading the revolution.

The first Presidential Decree issued right after the declaration of martial law was PD 1, which required the most thorough

reorganization of the executive branch of the Philippine government. Among the major structural changes made were:
• Decentralized national government works to the degree necessary to improve administration by reducing the number of

departments under the President's office and establishing 11 unified administrative regions.
• It has centralized the structure and common organizational tasks of the departments. Four staff resources for planning, finance

and management, administration and technical vices have been developed in each department.
• It facilitated the preparation and execution of national development plans by creating the National Economic and Development

Authority (NEDA).

• The single-headed Civil Service Commission has been turned into a three-person Commission.
• It decentralized personnel functions to line departments, bureaus and regional offices.

• It created the Career Executive Service as the highest level of government service.
The Aquino Regime

Corazon C. Aquino was sworn in as President of the Republic of the Philippines after Marcos fled the country as a result of the

EDSA Revolution in 1986. With re-democracy as its main agenda, its administration continued with the restructuring of state

institutions, including the civil service. It set up a Presidential Commission on Government Reorganization, which saw the need

to "de-Marcosify" the bureaucracy.

The Aquino Regime Government Reorganization

1. The promotion of private initiative

2. Decentralization

3. Accountability

4. Efficiency of front-line services

5. Cost-effectiveness of operations.

In short, the bureaucracy was to be an instrument for democratic ends.

The Implications of the Evolution of the Philippine Bureaucracy on Its Capacity

• The goals they are set to achieve

• The processes which society expect them to utilize

• The amount of power and resources that they are vested with

• The level of accountability that they exercise

• The outputs and the outcomes they are expected to deliver

The Philippine Administrative
System:
Its definition
 What is Philippine
Administrative System?
The Philippine Administrative System

• Refers to a network of public organizations with specific goals, policies, structures, resources and programs

• Includes the processes and interaction between and among the public organizations

• The organizations are constituted to implement, formulate, monitor or assess public policies
The Philippine Administrative System
• it covers these organizations’ relationship with their immediate public-in-contact as well as their reaction to or how the
greater socio-politico and economic environment within which they operate affect them

• traditionally, the PAS refers to the executive branch, all offices and instrumentalities thereof, local government units,
government owned and controlled corporations and chartered institutions such as state colleges and universities
 Components of the Philippine Administrative System

• Public Organization – legal mandates, major

functions and structures, etc.

• Internal procedures and interactive efforts – perform

public functions through defined rules and

procedures internal to the organization.

• Responsible for the implementing public policies –

formulated jointly by the legislative and executive

branches
 Components of the Philippine Administrative System

• Conscious of the different kinds of clientele that it deals with

• S o c i o - p o l i t i c a l , e c o n o m i c e n v i r o n m e n t – PA S a s p a r t o f t h e b i g g e r

social system with competing claims to limited resources and

institutions play a role in determining the utilization of

resources.
The Philippine Administrative System: Its Component and Power Base

First Component: Public Organizations

These organizations are usually created by law, which defines their purpose, their core structure, the functions that they are to

undertake and how their operations are to be funded by public funds.

The Philippine Administrative System: Its Component and Power Base

Second Component: Internal Processes and Interactive Efforts

Each of these entities conducts its public functions by established rules and procedures. These processes are internal to the

organization.
The Philippine Administrative System: Its Component and Power Base

Third Component: Implementing, Help Formulating and Assessing Public Policies

The PAS is primarily responsible for the implementation of public policies adopted jointly by the legislative and executive

branches. However, it is important to note that its responsibility is not limited solely to implementation.
The Philippine Administrative System: Its Component and Power Base

Fourth Component: Individuals, Groups, Organizations and Communities as Its Public/Clientele

The public which the PAS serves is an important element of the PAS that is not included in other definitions. The PAS must be

aware of the different kinds of public or clientele it deals with. Depending on its existence, a public agency can treat individuals,

associations, private or other public organizations, communities or even other countries as "public-in-contact."
The Philippine Administrative System: Its Component and Power Base

Fifth Component: The Greater Socio-Politico and Economic Environment

The administrative system in the Philippines is part of a larger social system where there are competing claims to limited

resources and institutions play a role in deciding how these resources will be used. This environment consists of interests and

pressure groups with their respective claims on the state, and social and cultural values and practices.
The Philippine Administrative System as an
Enabling Institution
Elements of PAS

• Goals

• Structures

• Resources

• Policies

• Programs
The Philippine Administrative System Power

Base of PAS

• instrument of state

• enforcer of law

• implementor of public policy

• extensive structure

• service delivery system

• participant in policy formulation process

• technical knowledge
 Sources of Power of the PAS
• Instrument of the state – government functions are

e x e r c i s e d l e g i t i m a t e l y, s u p p o r t e d b y e n a b l i n g s t a t e

policies and authority

• Enforcer and implementor of public policy –

discretion in policy implementation

• Service delivery system – discretion to determine

q u a n t i t y, q u a l i t y, a d e q u a c y a n d t i m e l i n e s s o f

services it provides.
 Sources of Power of the PAS
• Participant in policy formulation – advice is sought

on legislation and policy-making

• Te c h n i c a l e x p e r t i s e – p r o f e s s i o n a l t r a i n i n g o f c i v i l

servants in areas of competence on policy issues.

• Nationwide presence – expansive reach to mobilize

s u p p o r t f o r p r o g r a m s a l l o v e r t h e c o u n t r y.
 The PAS as Instrument of the State

The public bureaucracy derives its administrative power from its being an

arm of the state. The PAS is in effect the machinery through which the

functions of government are exercised legitimately throughout the country.

The PAS as Enforcer and Implementor of Public Policy

The PAS enforces the laws and implements other public policies set by the

executive and the legislative branches of government.

 The PAS as a Service Delivery System

The PAS is also a major service delivery system. As such, it utilizes its authority,

structure, and resources to produce specific services that it extends to a clientele

group.
The PAS as Participant in the Policy Formulation Process

The involvement of the PAS in the policy formulation process is largely due to its

position as an enforcer and implementer and its technical expertise on certain issues.
 Technical Expertise of the PAS

Another source of power for the PAS is the accumulated technical expertise it has

accumulated over time in dealing with the myriad and complex issues that the

government needs to address.

 Nationwide Presence of the PAS

Public administration has a growing scope through which it can attract support from

across the country for its programs. This network also provides the PAS with a

broad base for its operations that can be used for any interagency initiative.
The Philippine Administrative System Utilizing

PAS Power to Enhance People Power

• acknowledges people as ultimate source and end of state power
• enforces the law fairly and justly
• implements public policy efficiently
• institutionalizes access to PAS' services
• decentralizes and makes operations transparent
• listens to and works with the people
• uses local language/keeps procedures simple
 PAS empowers People

• I n s t i t u t i o n a l i z e s a c c e s s t o PA S s e r v i c e .

• Decentralizes and makes operations transparent.

• Listens and works with people.

• Procedures should be made simple and local language

should be used.
Characteristics of the Philippine Administrative System

• organized

• critically aware

• has vision of what they want

The Philippine Administrative System PAS

Empowerment Checklist

• just & fair enforcement of the law

• participatory & consultative

• accessible

• decentralized

• efficient & service-oriented

• accountable

• pro-equity
 Desirable Characteristics of the Philippine Administrative System

The PAS is a just and fair law enforcement body if it treats everyone in the same way, regardless of profession,

position, income, and status.

 Desirable Characteristics of the Philippine Administrative System

The PAS is participatory and consultative when it listens and operates in the local language with the people to the

extent possible, and keeps its procedures easy.

 Desirable Characteristics of the Philippine Administrative System

The PAS is open when it defines and minimizes access issues that arise from the physical distance, administrative

criteria, and financial costs that consumers or the public have to bear in accessing or using services.
 Desirable Characteristics of the Philippine Administrative System

The PAS supports decentralization when it considers the importance of decisions made at rates nearest to those

impacted by the decision.

 Desirable Characteristics of the Philippine Administrative System

The PAS is successful because it offers more and better service to people for the same or lower cost.
 Desirable Characteristics of the Philippine Administrative System

The PAS is accountable for the use of all its influence when it demonstrates and frequently reports to the public

and political leaders on how it has used the authority, resources and information available to it to enforce public

policies.
 Desirable Characteristics of the Philippine Administrative System

The PAS supports the cause of equality as it acknowledges the needs of the poor in Philippine society and explores

how its pro-grams can offer alternatives to them when private programs are beyond their means.
 Components of the PAS as an Enabling Institutions

The People: The Ultimate Source of Power

The framework begins with the people as it is based on the assumption that whatever power the PAS has is that

which the Filipino people have in it.

 Components of the PAS as an Enabling Institutions

The Philippine Administrative System (PAS)

The PAS is composed of public organizations with their own objectives, structures, policies, resources and

programs.
 Components of the PAS as an Enabling Institutions

The Empowerment Process

The empowerment process, as set out in the framework, operates at two levels. It operates at the PAS level when

the system complies with the required processes set out in the framework.
 Components of the PAS as an Enabling Institutions

The Community

Communities need to be organized, to be critically aware of what's going on around them, and to have a vision of

the community that they want to be.

 Components of the PAS as an Enabling Institutions

The Environment

The interaction between the PAS and the community must be understood in the context of the wider socio-political

and economic environment in which they are located.

The Philippine Administrative System
Capability Building
• Refers to the “building” of people-based structures and institutions which is

the real essence of the concept. It means enabling people to organize

themselves around common needs and to work together towards common ends.

I t i s a d d r e s s e d t o p o l i c y m a k e r s , p r o g r a m i m p l e m e n t o r a n d p r o g r a m b e n e f i c i a r y.
The Philippine Administrative System Four

Stages of Capability Building Process

• problem identification

• objective setting

• program planning

• structure building
The Philippine Administrative System
Four Outcomes of Capability Building
• effective self-sustaining community organizations

• community problems-solving capability

• community sense of efficacy and power

• partnership/linkage with outside structures

• community self-management process installed

 The Philippine
Administrative System:
Political and Administrative Accountability
 Political and Administrative Accountability
• Accountability is a condition in which individuals who exercise power

are constrained by external means and by internal norms.

• It refers to the institution of checks and balances in an organization

through which an administrator accounts for his/her stewardship of

r e s o u r c e s o r a u t h o r i t y.
 Political and Administrative Accountability
• The political-administrative continuum means that elected officials

are politically accountable to the electorate or their constituencies

who voted them to their positions. These elected officials are held

responsible through regular elections and other means. Appointive

public officials answer to the people through the elected officials who

appointed them and directly to the public whom they serve.

 Four Types of Accountability
• Individual Accountability

• Accountability of the Administrators

• Political Accountability

• Accountability of National Leaders

 Four Types of Accountability
• Individual Accountability – public employees are answerable for the

responsible, efficient and effective performance of their tasks.

• Accountability of the Administrators – for their stewardship of the

a d m i n i s t r a t i v e a u t h o r i t y, r e s o u r c e s a n d i n f o r m a t i o n p l a c e d a t t h e i r

disposal as leaders of public organization.

 Four Types of Accountability
• Political Accountability – institutions must answer for their

organizational mandate and functions, particularly as they form part

of the incumbent government strategy for national development.

• Accountability of National Leaders – elected national leadership must

answer for the performance in pursuing their programs of government

a n d t h e i r u s e o f n a t i o n a l r e s o u r c e s , g i v e n t h e a u t h o r i t y, p o w e r a n d

r e s o u r c e s v e s t e d i n t h e m b y t h e i r c o n s t i t u e n c y.
 The Philippine
Administrative System:
Structure and Functions
• Constitutional Bodies

• Executive Departments

• Government-Owned and Controlled Corporations

• Local Government Units

• State Universities and Colleges

 • Civil Service Commission
• Commission on Audit
• Commission on Elections

Other bodies
• Commission on Human Rights
• Office of the Ombudsman

Constitutional Bodies
 • Office of the President

• Office of the Vice President

Executive Branch
 • Senate of the Philippines

• House of the Representatives

Legislative Branch
 • Supreme Court

• Court of Appeals

• Sandiganbayan

• C o u r t o f Ta x A p p e a l s

• Judicial and Bar Council

Judicial Branch
Special Agencies/Offices
• Metro Manila Development Authority
• National Anti-Poverty Commission
• N a t i o n a l Yo u t h C o m m i s s i o n
• C o u n c i l f o r t h e We l f a r e o f C h i l d r e n
• Office of Muslim Affairs
• National Commission on Indigenous Peoples
• National Nutrition Council
• Agno River Basin Development Commission
Government-Owned and
Controlled Corporations
any agency organized as a stock or non-stock corporation vested with functions relating to
public needs whether governmental or proprietary in nature and owned by the government
directly or through its instrumentalities, either wholly, or, where applicable as in the case of
stock corporations, to the extent of at least fifty-one (51) percent of the capital stock.

Example:
• Land Bank of the Philippines
• Development Bank of the Philippines
Chartered Institutions

refer to any agency organized or operating under a special charter, and vested by law with
functions relating to special constitutional policies or objectives. this term includes State
Universities and Colleges and the monetary authority of the state.
Local Government Units
• Regions

• Provinces

• Cities

• Municipalities

• Barangays
Local Government Functions
Local governments have four major categories of functions:

• Efficient service delivery

• Management of the environment

• Economic development

• Poverty alleviation
 Administrative Relationships
If an office is under the supervision and control of another unit, it

means that the higher office:

• H a s a u t h o r i t y t o a c t d i r e c t l y, w h e n e v e r s p e c i f i c f u n c t i o n i s e n t r u s t e d

by law or regulation to a subordinate.

• D i r e c t s t h e p e r f o r m a n c e o f a d u t y.

• Restrains the commission of acts.

• Reviews, approves, reverses or modifies acts or decisions of

subordinate officials and units.

 Administrative Relationships
If an office is under the supervision and control of another unit, it

means that the higher office:

• Determines priorities in executing plans and programs.

• Prescribes standards, guidelines, plans and programs.

 Administrative Supervision and Attachment
Administrative supervision:
• Oversee the operations of such agencies to ensure these are managed

e f f e c t i v e l y, e f f i c i e n t l y a n d e c o n o m i c a l l y ; n o i n t e r f e r e n c e i n d a y t o

day activities.
• Require submission of reports; cause the conduct of management

audit, performance evaluation and inspection to determine

rectification of violations, abuses and etc.

• Review and pass upon budget proposal of such agencies, but may not

increase or add to them.

 Administrative Supervision and Attachment
Attachment (Attached Agencies or corporations)
• Department presented in the board, as chair or member

• Comply with periodic reporting

• Department provides general policies through its board

representatives.
 The Philippine
Administrative System:
Government Reorganization
 Government Reorganization
- Planned deliberate efforts to systematically alter the existing

organizational structure usually for the purpose of achieving

g o v e r n m e n t o b j e c t i v e s w i t h m o r e e c o n o m y, e f f i c i e n c y a n d e f f e c t i v e n e s s .

• Pre-planning or Reorganization

• Preparation of Reorganization proposals

• Final Stage
 Government Reorganization

Pre-planning or Reorganization
• How reorganization is initiated

• Who is the authority vested with reorganization

• Setting goals and tasks

• Defining the powers to reorganize and outline the scope

• Setting resources
 Government Reorganization

Preparation of reorganization proposals

• Constituting the reorganization body

• Preparing the reorganization proposals

• Recruiting support and staff

• Creating information base for preparation of proposals

 Government Reorganization

Final Stage
• Is the passage of law that grants the authority to implement the

reorganization process.
 The Philippine
Administrative System: The
National Budget Cycle
 The Budget Cycle

• Budget Preparation

• Budget Legislation

• Budget Execution

• Budget Accountability
 The National Budget Cycle

Budget Preparation – budgetary parameters is determined by the

Development Budget Coordinating Committee composed of the

Department of Budget and Management, Department of Finance,

N a t i o n a l E c o n o m i c a n d D e v e l o p m e n t A u t h o r i t y, t h e C e n t r a l B a n k a n d

the Executive Secretary representing the Office of the President.

 The National Budget Cycle
Budget Preparation Stages:
• Budget Call

• Budget Hearings

• Budget Review and Consolidation

• Budget validation/confirmation

• Approval by President and Cabinet

• S u b m i s s i o n o f t h e P r e s i d e n t ’s b u d g e t t o C o n g r e s s
 The National Budget Cycle

B u d g e t L e g i s l a t i o n – e n t a i l s t h e c o n v e r s i o n o f t h e P r e s i d e n t ’s b u d g e t

p r o p o s a l i n t o l a w. T h e a p p r o v e d l a w i s t h e n r e f e r r e d t o a s t h e G e n e r a l

Appropriations Act (GAA).

 The National Budget Cycle
Budget Legislation Stages:
• House hearings and debate

• House approval and submission to Senate

• Senate hearings and debate

• Senate approval

• Conference Committee

• President approves the General Appropriations Act

 The National Budget Cycle

Five Phases of Budget Execution

• Formulation of Allotment and Cash Release Program

• Agency Budget Matrix Preparation

• A g e n c y B u d g e t M a t r i x Va l i d a t i o n a n d C o n f i r m a t i o n

• Special Allotment Release Order (SARO)/Notice of Cash Allocation

(NCA) Releases
• Program/Project Implementation
 The National Budget Cycle

Budget Accountability – this is to establish accountability of the

government agencies that have received public funds. This is done

largely through a system of monitoring and evaluating agencies’

performance and approved work targets.

Study Guide Questions

1. D i f f e r e n t i a t e S p a n i s h C o l o n i a l B u r e a u c r a c y t o t h e A m e r i c a n C o l o n i a l

B u r e a u c r a c y.

2. What is the Philippine Administrative System?

3. W h a t a r e t h e f o u r t y p e s o f a c c o u n t a b i l i t y ? E x p l a i n e a c h .

4. W h a t a r e t h e c o m p o n e n t s o f t h e P h i l i p p i n e A d m i n i s t r a t i v e S y s t e m a s

an enabling institution?

5. W h a t a r e t h e p r o c e s s e s i n t h e b u d g e t c y c l e ? E x p l a i n e a c h .
 Reference

A l f i l e r, M a . C o n c e p c i o n P. “ T h e P h i l i p p i n e A d m i n i s t r a t i v e S y s t e m ” ( 1 9 9 9 ) ,

pp. 46-59.

A l f i l e r, M a . C o n c e p c i o n P. “ T h e P h i l i p p i n e A d m i n i s t r a t i v e S y s t e m ” ( 1 9 9 9 ) ,

pp. 65-90.

A l f i l e r, M a . C o n c e p c i o n P. “ T h e P h i l i p p i n e A d m i n i s t r a t i v e S y s t e m ” ( 1 9 9 9 ) ,

p. 100.
 Reference
A l f i l e r, M a . C o n c e p c i o n P. “ T h e P h i l i p p i n e A d m i n i s t r a t i v e S y s t e m ” ( 1 9 9 9 ) ,

p . 11 4 .

A l f i l e r, M a . C o n c e p c i o n P. “ T h e P h i l i p p i n e A d m i n i s t r a t i v e S y s t e m ” ( 1 9 9 9 ) ,

pp. 135-146.

A l f i l e r, M a . C o n c e p c i o n P. “ T h e P h i l i p p i n e A d m i n i s t r a t i v e S y s t e m ” ( 1 9 9 9 ) ,

pp. 149-150.

A l f i l e r, M a . C o n c e p c i o n P. “ T h e P h i l i p p i n e A d m i n i s t r a t i v e S y s t e m ” ( 1 9 9 9 ) ,

pp. 232-238.