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ABSTRACT
This paper focuses on the main purpose of the proposed bill which is the creation of
additional plantilla positions in government agencies for the performance of regular functions to
ensure the continuous and efficient delivery of government services in order to uphold public
interest. It provides illustration of the problem which is the inadequacy of plantilla items and its
results which are endless contractualization and impairment of public service. It also provides
discussion on the issues and circumstances prevalent in the society that need to be addressed by
the proposed bill. It presents the procedural requirements in the creation of position which is a
collaborated effort of the agency, Department of Budget and Management and Civil Service
Commission.
II. INTRODUCTION
“It was once said that the moral test of government is how that government treats those
who are in the dawn of life, the children; those who are in the twilight of life, the elderly; and
those who are in the shadow of life, the sick, the needy and the handicapped,” a quote by Hubert
H. Humphrey which manifests that the paramount objective of government is to provide a nation
where people dwell in safety and satisfaction. Pursuant to the Philippine Constitution’s State
Policy to promote a just and dynamic social order that will ensure the prosperity and
independence of the nation and free the people from poverty through policies that provide
adequate social services, promote full employment, a rising standard of living, and an improved
quality of life for all1, the government ensures the delivery of effective services which include
transport, water, electricity, housing, health, safety and welfare. These services will be carried
out by the output-oriented agencies and other instrumentalities of the government which utilizes
government resources economically. These agencies fortifies guarantee that public service will
not be vitiated.
Towards fostering public service, this paper aims to exhibit how will the government
manpower. This also aims to account contractual workers fulfilling the unidentified regular
functions. Its utmost purpose is to ensure the continuous and efficient delivery of government
regular functions of the agencies throughout the years. However, the evolving demand of the
modern society emerges the need of the agencies to cope up with these challenges. These
challenges result to the inability of the regular employees to perform the additional duties which
Government agency’s regular functions contemplate essential duties which are performed
over a continuous period and are indispensable for the delivery of its objectives. Every function
an employee performed aims to provide excellent output in accordance to its declared vision,
1
Article II, Sec. 9, Declaration of Principles and State Policies, 1987 Philippine Constitution.
2
mission and principles. All of these are for the fulfilment of agency’s commitment towards social
justice.
to additional manpower. In accordance with the State Policy of 1987 Philippine Constitution
which affirms labor as a primary social economic force 2 consequentially denotes the relevance of
human factor towards effecting agency’s goal. Identification of needed work force and
consideration of supplemental workers are the primary formula in sustaining exemplary service
2
Article II, Sec. 18, Declaration of Principles and State Policies, 1987 Philippine Constitution.
3
III. RATIONALE
The Government, through its agencies, is carrying out its duties in good faith for the furtherance
inevitable factor which is the changing dictates of the present society which raises the need of the
The contemporary issue that affects the government’s delivery of continuous and
efficient public service is the inadequacy of plantilla items which the government fails to account
Illustration I.
Endless
contractualization
in the Government
Hiring of temporary
workers
in Government Agencies
Non-performance of
other duties
Impairment of
public service
This framework shows the circumstance that the authors ought to address. It reflects the
main problem which is the inadequate plantilla items of government agencies which lead them to
resort to hiring workers in a fixed term to perform the duties that the regular employees cannot
fulfill because they are also working their own duties and responsibilities. This kind of condition
3
Article II, Sec. 10, Declaration of Principles and State Policies, 1987 Philippine Constitution.
4
may result to endless contractualization. Moreover, the insufficiency of manpower in
consequence, results to non-performance of other duties and the upshot is the impairment of the
Senate President Pro Tempore Ralph accounts workers hired by DSWD which includes
1,351 Job Order workers and 14,189 Contract of Service workers and those hired under
Memorandum of Agreement.4 Data from the Civil Service Commission (CSC) showed that more
than 27 percent of the 2.4 million government workers were job order or contract of service
employees.5 This is a vivid manifestation that government agencies workforce is not sufficient to
carry out its purpose. In as much as government agencies desire that these workers employed in a
fixed term be regular employees, the problem as stated by the Civil Service Commission (CSC),
through its representative, Director III Atty. Jennifer Timbolis that there are no plantilla positions
for temporary employees.6 Hence, it is difficult for the government to end contractualization.
President spokesman Harry Roque said that the government is addressing the issue of
Commission on Audit and the Department of Budget and Management have issued the joint
circular directing government agencies to review their structure and identify their much needed
manpower.7 This is one of the steps that needs to be focused by the government to curb
contractualization system.
With that regard, the authors come up with a bill entitled “An Act Mandating Agencies
with Inadequate Plantilla Items to Create Permanent Positions for Jobs Considered Part of
Regular Functions of the Agency” also known as “PPRF Act of 2020” attached as Annex “A”.
The authors aim to exhibit the relevance and effect of this bill towards the temporary workers,
4
Press Release, Senate of the Philippines, With 25,000 causals, DSWD is ‘endo capital’ of gov’t – Recto.
5
More contractual workers in government, Inquirer.net.
6
Press Release, House of Representatives, House presses end to gov’t endo.
7
Gov’t taking steps to curb contractual employment in public sector, Manila Bulletin.
5
IV. CONTEXT
As the Philippine Constitution affirms labor as a social economic force, it fortifies human
factor as the fuel of the operations of any entity. Government agencies, as instruments in
providing welfare to the people, engage labor as its mechanism towards public service.
This paper covers all government agencies including National Government Agencies,
Government-owned and Controlled Corporations with original charters, State Universities and
Colleges and Constitutional bodies. These government agencies’ contributions are evident with
their accomplishment over the years. As of Jan-June 2019, Department of Agrarian Reform was
able to distribute a total of 35,612 hectares benefitting 22,263 ARBs. It was also able to register
EP and CLOAs covering 8,305 hectares benefitting 5,941 ARBs. 8 Further, Department of Social
Welfare and Development also served through its Sustainable Livelihood Program a total of
104.98% or 55,779 households exceeding the annual physical target. 9 On the education aspect,
Department of Education for the year 2018 has constructed 4,334 new classrooms.10 With the
commitment of National Housing Authority to provide shelter to those displaced by the siege in
May 2017, NHA was earmarked to construct 6,700 temporary shelters. Its accomplishment
includes housing completions of 38,597 units and housing starts of 61,708 units.11 All of these
Along with the eagerness of the government to provide good and decent standard of
living as guaranteed by the Bill of Rights, is the emergence of the issue on the insufficiency of
One of the prevailing issues in this case is the employment status of herein petitioners.
(MWSS), a government owned and controlled corporation with its own charter, Republic Act
8
Department of Agrarian Reform Accomplishment Report Jan-June 2019.
9
Department of Social Welfare and Development CY 2019 Accomplishment Report.
10
Department of Education Physical Accomplishment Report.
11
National Housing Authority Annual Report 2018.
6
No. 6234. By virtue of an Agreement, petitioners were engaged by the MWSS as collectors-
contractors, wherein the former agreed to collect the concessionaires of MWSS, charges, fees,
assessments of rents for water, sewer, and/or plumbing services which the MWSS bills from time
to time. MWSS assert that the petitioners are not its regular employees however petitioners claim
otherwise.
Upon perusal, the Court held that petitioners are regular employees of MWSS. It has been
ruled in the case at bar that the primary standard of determining regular employment is the
reasonable connection between the particular activity performed by the employee in relation to
the usual business or trade of the employer. It emphasizes that the connection can be determined
by considering the nature of the work performed and its relation to the scheme of the particular
business or trade in its entirety. Likewise, the repeated and continuing need for the performance
of the job has been deemed sufficient evidence of the necessity. Relevant documents revealed
that some of the petitioners had rendered more than two decades of service to the MWSS. The
continuous and repeated rehiring of these bill collectors indicates the necessity and desirability of
their services, as well as the importance of bill collectors in the MWSS. Moreover, payments
made by MWSS’ subscribers are the lifeblood of the company. Viewed in that context the work
In a press release from Press and Public Affairs Bureau, State Universities and Colleges
reported lack of adequate plantilla positions for full-time faculty affecting quality higher
education in the country. As stated by the Pasig City Representative Roman T. Romulo, there is
an estimated shortage of 17,057 faculty in SUCs based on the survey of the Philippine
Association of State Universities and Colleges (PASUC). He added that, the shortage of plantilla
positions have compelled the teachers to devote most of their time and attention to instruction, to
the detriment of research and extension programs of the SUCs, which is another reason SUCs lag
behind other higher education institutions in Asia in terms of performance and quality. Pasig
12
Alexander R. Lopez, et. Al v. Metropolitan Waterworks and Sewerage System, G.R. No. 154472.
7
City Representative Romulo pointed out that the existing plantilla positions can no longer cater
to the increasing trends in enrolment and the SUCs have been compelled to hire additional
faculty through contracts, job order and emergency instructors on part-time status.13
Department of Health Undersecretary Roger Tong-an said that the need for 26,000 nurses
is for the implementation of Universal Health Care for the purpose of building a health care
system that is strong and resilient. Department of Budget and Management has allocated 2019
funds for Human Resource for Health for the creation of new plantilla positions.14
In the efforts to be an essential tool in the holistic development of a child and strengthen
the educational program of schools and pursuant to Republic Act 9258 or the Guidance and
Counseling Act of 2004, Department of Education seeks to increase the number of guidance
constitute the Bids and Awards Committee (BAC), i.e. no plantilla position in the list of
authorized positions created by the Department of Budget and Management, and existing within
the organizational structure of the agency, the rule o n procurement agent may then be applied. If
the agency cannot validly constitute its own BAC due to lack of plantilla positions, it is allowed
- An Act Increasing the Number of Plantilla Positions for the West Visayas State
University assigned to staff the West Visayas State University Medical Center in Order to Meet
13
Press Release, House of Representatives, Inadequate plantilla teaching posts in SUCs affecting quality higher
education.
14
DOH to employ 26,000 nurses in plantilla positions for UHC, says Usec, Infonurses.
15
House Bill No. 509.
16
Bids and Awards Committee, Government Procurement Policy Board.
8
the Standard Number of Staffing Positions for a Three Hundred (300)- Bed Medical Center and
D. POLICY ISSUANCES
Civil Service Commission (CSC), Commission on Audit (COA), and the Department of
Budget and Management (DBM) jointly issued Joint Circular No. 1, s. 2017 which deals with the
rules and regulations governing contract of service and job order workers in the government. The
Commission said that the joint circular should prompt agencies to review their existing projects
and determine which are temporary and which can be considered as part of their regular
functions. The circular also suggests agencies with inadequate plantilla to submit to the DBM a
request for the creation of new permanent positions that will perform regular functions.18
E. RELATED STUDY
A Philippine Institute for Development Studies, Consultant Alex Brillante Jr., shows that
the K to 12 Transition Program of the Commission on Higher Education (CHED) has been mired
in administrative issues, hampering the country’s smooth transition to the K to 12 Program. The
study noted the insufficiency of regular plantilla positions for CHED staff resulting in uneven
A Contract of Service worker for 15 years in the Department of Agrarian Reform in the
province of Misamis Occidental named Tita Bodiongan seeks for a permanent position. The
nature of her work is Budget Aide which includes the duties of obligating vouchers, monthly
preparation of Financial Accounting Records System, updating the e-Budget and Unified
Reporting system. When asked with the necessity of her work in the agency’s objectives, she
stated that her duties are essential in the delivery of DAR’s goal especially on the part of Support
to Operation Division. She added that there is a need for a technical assistant for the budget
officer as the said officer performs a volume of workload which results to a delay on complying
other reports to be submitted to the Regional and Central Office. Aside from the functions
performed within the province, there are several trainings and conferences to be attended by the
17
Republic Act 10558.
18
Civil Service Commission, CSC clarifies guidelines on Job Order and Contract of Service Workers.
19
CHED’s K to 12 Transition Program Facing Challenges- PIDS Study.
9
budget officer outside the province which also gives difficulty on submitting some reports on the
deadline. She added that her years of service may be considered as one factor to recognize her
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V. DISCUSSIONS
The authors anchored the proposed bill from the aforementioned issues and
Among the issues raised by agencies, the common concern is the insufficiency of
workforce which is the main problem of this paper as showed in Illustration I. This problem can
cause a domino effect towards the workers, agency, its beneficiaries and the entire country.
Inadequacy of manpower gives uneven volume of workload directed to the existing employees
which hampers their ability to maximize their resources as it gives difficulties in managing duties
due to its volume and complexity. With this situation, workers are incapable of focusing on
specific duties caused by unreasonable volume of workload to comply with which may lead to
unsatisfactory performance. Inability of the workers of a certain agency to deliver its duties
efficiently creates negative impact towards agency’s undertakings and goals. The failure of the
agency to promote satisfaction, its beneficiaries may be affected and their right to have a good
life be compromised. A country where people are deprived of their right to live in a harmonious
and decent kind of life associates underdeveloped country. Under other circumstances, in line
with the intent of every agency to render output-oriented activities and projects, compromising
its quality of service is not an option. In view of this, an agency with inadequate plantilla
positions opts in procuring the services of temporary workers to effectuate other functions. Some
temporary workers were hired often which indicates the agency’s continuous need of the
performance of a certain job. Government agencies in the country continually make use of hiring
workers in a contract basis which is inconsistent with the steps taken by the present
services of Job Order and Contract of Service workers to perform specific project requiring
expertise not available in the agency. Government agencies continue to contract with these
workers in which some Contract of Service of workers are rendering 10 years or more fulfilling
the same tasks being assigned from the first day of duty. This is a noticeable data on the
interconnection of the job and the agency. Likewise, the Joint Circular urges government
11
agencies to assess and review functions involved in the agency which are not yet recognized as a
regular function especially those performed by the temporary workers for years.
One of the reasons in creating permanent positions is the challenges brought by the
demands of the modern era. In order to deal with these challenges, agencies made strategic
system or program in connection with its targets. The designed system or framework may require
for technical expertise and skills which seeks for additional set of competent workers to
strengthen the agency’s purpose. Republic Act No. 10558 augmented the number of plantilla
positions in order to meet the standard staffing positions which is a noticeable circumstance of
The advantage of agency with adequate plantilla position in terms of constituting the
Bids and Awards Committee for the procurement process is that it will not resort to other modes
of procurement which includes requesting other agencies to request on their behalf. In requesting
other agencies to do the same constitutes delay on the procurements on the part of the requesting
agency as it relies on other agency whenever procurement arises. Procurements, as part of the
operations of the agency in delivering its services, need to be carried out immediately in order to
provide its services promptly. Another drawback is that it gives burden to the requesting agency
The issue raised in the case of Lopez v. MWSS points out two of the factors in
the indispensability of the particular undertaking in the sustainability of the operations. This can
institutions’ efforts in implementing its mission. Another factor is the rendered service in a long-
term time frame. An activity, if not relevant to the continuity of an entity, would be removed
immediately. If necessary, on the other hand, an entity will opt to sustain the activity and seek for
its engagement. Hence, an agency having this kind of circumstance may consider the creation of
another permanent position for the function to be included in the organization’s road to
accomplishment.
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V. PROCEDURAL REQUIREMENTS
To address this circumstance, measures should be taken by the government agencies and
other concerned entities from its assessment up to its approval for creation of plantilla items with
consideration of the reasonable necessity of the position to the attainment of entities’ goal
Assessment and
Inadequate review of jobs,
Plantilla Items programs and
activities considered
regular functions
This illustration shows the measures to be taken by the government agencies to address
the emergence of the inadequacy of plantilla items. There are three (3) steps to be undertaken.
First step is the assessment and review of jobs, programs and activities. This will enable the
agency to determine those functions considered as regular to its operations. Following the
determination is the assessment and preparation of the job description and specifications of the
13
identified position. However, this cannot be done immediately as there is a need to prepare
request and submit the same to government agency clothed with authority to approve the request
In the determination of regular functions, agency shall conduct analysis process on the
duties and responsibilities of the current functions which are performed by temporary workers. 20
On this process, the function examined shall manifest its relevance to the fulfilment of agency’s
goals. The output of the function shall have a direct correlation to the agency’s vision and
mission. Subsequent with the determination is the preparation of job description and
specification. Agency shall list the duties and responsibilities entailed in the identified function
to be used in the recruitment and selection process. Notwithstanding the desire to create
additional permanent positions, agency cannot to the same without requesting to the Department
of Budget and Management. Revised Administrative Code of 1987, Section 3, Chapter 1, Title
XVII declares that Department of Budget and Management (DBM) shall have the power in the
administration of compensation and position classification systems. 21 Agency shall prepare the
documentary requirements for the creation of plantilla positions in accordance with the
requirements provided by the DBM. The documentary requirements include agency request
endorsed by the Department/Agency Head, its Legal basis, rationale and justification of the
proposal, description of the positions involved and funding source. 22 DBM, clothed with the
authority to establish the rules and procedures for the management of government organization
resources,23 shall examine the request of the agency and administer necessary measures for the
approval of the same subject to existing budgeting and accounting rules and regulations.
Thereafter, Civil Service Commission as the central personnel agency of the Philippine
government24 shall undertake necessary measures towards the approved additional plantilla
positions.
20
The Position Classification Plan, Department of Budget and Management.
21
Administrative Code of 1987, Title XVII Budget and Management.
22
Documentary Requirements for Budgetary Requests-DBM.
23
Department of Budget and Management General Functions.
24
Civil Service Commission.
14
VI. CONCLUSION
Based on the issues and circumstances presented, the following are the conclusions:
1. Inadequate manpower leads to the impairment of public service evidenced by the issue
agency include the interconnection of the undertaking and the agency’s objectives and
goals and the performance in a continuous uninterrupted manner. These factors are
4. Sufficient workforce is one of the instruments of an agency to attain its intentions and
purpose.
Hence, the proposed bill by the authors in concurrence with the recognition of labor as a
primary social economic force and which addresses a circumstance that affects the delivery of
continuous and efficient public service shall be considered and approved for the advancement
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VII. REFERENCES
1. 1987 Philippine Constitution. Declaration of Principles and State Policies, Section 9, 10, 18.
constitution-of-the-republic-of-the-philippines/the-1987-constitution-of-the-republic-of-the-
philippines-article-ii/
2. Press Release 2017. With 25,000 casuals, DSWD is ‘endo’ capital of gov’t- Recto. Retrieved 6
3. Yee, Jovic. More contractual workers in gov’t. Retrieved 3 April 2020 from
https://www.google.com.ph/amp/s/newsinfo.inquirer.net/1010972/more-contractual-workers-
ingovt/amp
4. Press and Public Affairs Bureau. House presses end to gov’t end. Retrieved 3 April 2020 from
www.congress.gov.ph/press/details.php?pressid=9974
5. Kabiling, 2018. Manila Bulletin. Gov’t taking steps to curb contractual employment in public
to-curb-contractual-employment-in-public-sector/
https://livelihood.dswd.gov.ph/storage/reports_documents/ilovepdf_merged.pdf
from https://www.deped.gov.ph/wp-content/uploads/2018/11/FY2018-Q3-Physical-
Accomplishment-Report-BAR-1.pdf
9. National Housing Authority. Annual Report 201. Retrieved 3 April 2020 from nha.gov.ph/wp-
content/uploads/2019/09/Annual-Report-2018-1.pdf
16
10. Philippine Supreme Court Jurisprudence. Alexander R. Lopez v. Metropolitan Waterworks
www.chanrobles.com/cralaw/2005junedecisions.php?id=632
11. Press Releases, House of Representatives. Inadequate plantilla teaching posts in SUCs
www.congress.gov.ph/press/details.php?pressid=8532
12. Infonurses, 2019. DOH to employ 26,000 nurses in plantilla positions for UHC, says Usec.
positions-for-uhc-says-usec/
13. House Bill 509. An Act Creating in the Department of Education the Plantilla Positions of
Guidance Counselor fro High School, Increasing the Salaries of Guidance Counselors and
Guidance-related Positions, and Appropriating Funds Thereof. Retrieved 4 April 2020 from
www.congress.gov.ph/legisdocs/basic_18/HB00509.pdf
14. Government Procurement Policy Board. Bids and Awards Committee. Retrieved 4 April
15. Republic Act No. 10558. An Act increasing the number of plantilla positions for the West
Visayas State University assigned to staff the West Visayas state university medical center in
order to meet the standard number of staffing positions for a three hundred (300)- bed
medical center and appropriating funds thereof. Retrieved 7 February 2020 from
https://lawphil.net/statutes/repacts/ra2013/ra_10558_2013.html
16. Civil Service Commission. CSC clarifies guidelines on Job Order and Contract of Service
order-and-contract-of-service-workers.html
17
17. Brilliantes, Alex. Philippine Institute for Development Studies. CHED’s K to 12 Transition
releases/423
18. Department of Budget and Management. Chapter 2. The Position Classification Plan.
content/uploads/2012/03/Manual-on-PC-Chapter2.pdf
19. Executive Order No. 292. Instituting the Administrative Code of 1987. Title XVII Budget and
https://www.officialgazette.gov.ph./1987/07/25/executive-order-no-292-book-ivtitle-
xviichapter-1-general-provisions/
content/uploads/DBM%20Publications/AnnexC.pdf
21. Department of Budget and Management. General Functions. Retrieved 7 February 2020
from https://www.dbm.gov.ph/index.php/about-us/general-functions
https://www.officialgazette.gov.ph/section/briefing-room/civil-service-commission-briefing-
room/
18
ANNEX “A”
19
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