5 The Philippine Administrative System as an Enabling Institution: A Framework and a Teaching Methodology MA. CONCEPCION P. ALFILER In attempting to answer the question “Is there a Philippine public administration?” this, article will present and elaborate on a framework which views the Philippine Administrative System (PAS), used here as synonymous to the Philippine public bureaucracy, as an enabling institution. This framework is then translated into a teaching methodology developed for a graduate course on the Philippine administrative system. The framework and the methodology are offered precisely to argue that Philippine public administration, both as an academic discipline and a profession, is thriving and is continuously in search of ways through which it can transform the Philippine bureaucracy to become a force for, rather than a deterrent to, people's participation in decision-making processes in government. ‘The article has four components. First, it shows that public administration literature has long recognized the value of people’s participation in governance, even as it also documents how the bureaucracy and its rules and regulations are identified as one of the obstacles to citizen and community participation in governance. Second, it presents a framework where the Philippine administrative system i conceptualized as an enabling institution, with a tremendous power base which it can wield to empower communities. It shall provide a PAS Empowerment Checklist that operationalizes the desirable attributes listed in the framework. ‘Third, it describes a teaching methodology which was developed for the graduate course where this framework was first presented. Woven into a semester's course was a community exposure where students get an opportunity to work with an organized urban poor community through its people's organizations and barangay officials. This community exposure enables the students, who are mostly working in government organizations, to assist the community in resolving a specific problem involving the government. In this Reprinted from the Philippine Journal of Public Administration, 52(2008/2-4), 224-24492. DIMENSIONS OF PUBLIC ADMINISTRATION STUDY AND PRACTICE process, the students get to better understand the community and learn from and acknowledge it as a learning partner. Finally, it ends with a set of questions directed to my colleagues at the National College of Public Administration and Governance (NCPAG) and to scholars and educators/trainers in Philippine public administration of the Association of Schools of Public Administration in the Philippines (ASPAP). What can they do to further sharpen the awareness and sensitivity of members of the Philippine bureaucracy such that the institution ceases to bea deterrent and is transformed into a supportive ally that makes the community's interaction with the PAS an easy, less intimidating, and fulfilling experience? CITIZEN PARTICIPATION, TRADITIONAL PUBLIC ADMINISTRATION, AND GOVERNANCE ‘The central role of patticipation in human development is aptly captired in the UN Development Programme's (UNDP) Human Development Report 1993 when it stated: Participation, from the human development perspective, is both a means and an end. Human development stresses the need to invest in human capabilities and then ensure that those capabilities are used forthe benefit of all. Greater participation has an important part to play here: it helps maximize the use of human capabilities and is thus a means of increasing levels of social and economic development. But human development i also concerned with personal fulfillment. So active participation, which allows people to realize their fll potential and make their best contribution in society is also an endin itself. (pp. 21-22) While the value of citizen participation is consistently acknowledged in the literature, the bureaucracy’s being an impediment to facilitating citizen participation is also a continuing, refrain. Thus, the list of obstacles to effective participation in the Human Development Report 1993 includes administrative rules and procedures. It contends that some countries “have shackled their people with innumerable regulations and controls, demanding all sorts of permits and permissions for even the most modest business initiative” (UNDP, 1993, p. 28). Schiavo-Campo and Sundaram (2001) echoed this view when they said: The biggest challenge to effective participation is usually bureaucratic behavior, which tends to confic wit: parte patory norms Iinpacnce with te long gestation petiod for eomananity ‘mobilization should not lead goverment and donor agencies to avoid participation in favor of quick benefits from top-down approaches. . .. Greater responsiveness to community participation ealls aswell for bureaucratic reorientation and taining to motivate government personnel to work effectively with the loeal groups (p. 538) Inan earlier work, Ihave shown how bureaucratic organizations can make themselves and their services inaccessible to citizens because of: (1) organizational structures which are not flexible and responsive since hierarchical control tends to make them set and rigid Q) procedures which routinize everything to simplify decision-making processes for frontline personnel; (3) personnel who by their loyalty to the organization become less sympathetic to individual clients’ needs; (4) undue emphasis on resource allocation for administrative infrastructure rather than on client service; and (5) evaluation scheme which ignores the problems of accessibility because itis not consistent with the institution's interest (Alfiler, 2008a, p. 787). Access is a prerequisite to participation and without access citizens cannot in any way meaningfully participate, much less influence, public policies or services designed for them,PHILIPPINE ADMINISTRATIVE SYSTEM AS AN ENABLING INSTITUTION 93 ‘As the concepts and values underlying the functions of the State in society were reviewed and found wanting, new models of public administration evolved. In the late nineties, the UNDP reconceptualized the concept of “governance,” defining it as “the exercise of political, economic and administrative authority to manage a country’s affairs” (UNDP, 1997, p. ix). The UNDP placed premium on promoting the constructive interaction between the state, private sector, and civil society as the principal goal of governing institutions (UN, 2005, p. 13). ‘The key principles of governance differed from that of traditional public administration and the public management school. The 2005 World Public Sector Report summarized the elements of three models of public administration in Table 1. Table 1. Three Models of Public Administration Public Public Responsive ‘Administration Management Governance Citizen-state Obedience Entitlement Empowerment relationship ‘Accountablity of Poltcians Customers Citizens and senior atfcals stakeholders Guiding principles Compliance with —Etfciency and——_Accountability, rules and results| ‘transparency, and regulations participation Ciiteria for success Output Outcome Process: key attribute Impartiaity Professionalism Responsiveness Sourea OW 2005, pT. Governance is labelled as “responsive governance” in this table. In its long list of ‘what characterize good governance, participation gets top billing, Good governance systems are participatory and all stakeholders of governance institutions must have a voice in transparent decision-making processes. ‘The three models of public administration show how varying guiding principles underlie each school of thought. While compliance with rales and regulations is crucial for traditional public administration, the efficient production of results is central to public ‘management, just as accountability, transparency, and participation are fundamental to responsive governance. These principles are consistent with how each model views citizen- state relationship. Citizens are expected to be obedient to the state in traditional public administration. They are viewed as customers who are entitled to services in public ‘management and as citizens and stakeholders who must be empowered in governance. What are the implications of these three models for a human resource management strategy for the public service? The 2005 World Public Secor Report suggests that traditional public administration... is anchored in the endusing principles of impartiality and merit; public management places particular importance on performance management and professionalism; and the governance paradigm stresses the need to make public administration more responsive tothe demands of citizens and other stakeholders. (UN, 2005, p. 21) ‘Three human resources management unifying principles emerge from these values: impartiality, professionalism, and responsiveness (UN, 2005, p. 21).94 DIMENSIONS OF PUBLIC ADMINISTRATION STUDY AND PRACTICE To unlock the human potential for public sector reform, it is recommended that leaders of public organizations adopt a process of organizational learning and reform through an environment that stresses the participation of all stakeholders in the process. THE PHILIPPINE ADMINISTRATIVE SYSTEM AS AN ENABLING INSTITUTION’ In response to the call for participatory governance, a framework which elaborates on how the Philippine administrative system (PAS) can function as an enabling institution and facilitate people’s participation in governance is presented. This framework was developed for a graduate course on PAS. It is anchored on three assumptions. First, the Stat@and the public bureaucracy or the PAS exists only for and because of the people. Second, to be able to serve the people well, there must be a conscious and continuous effort by members of the bureaucracy to know, understand, respect, and empathize with the publi¢. Third, the bureaucracy, in executing laws and implementing programs can work with and learn’ ‘from the public of the community they serve: doing this, they can use their attributes to enable or empower the public or community they serv. How do we define “PAS”? The “Philippine administrative system” refers to a “network of public organizations, with specific goals, policies, structures, resources, and programs.” It includes the internal processes of, and the interaction between and among, public organizations which are constituted to implement, help formulate, monitor, or assess public policies. This system encompasses the relationship of the PAS with its immediate public in contact with as well as its reactions to, or how it is affected by, the greater socio-politico and economic environment within which it operates. Traditionally, “PAS” refers to the “executive branch and all offices and instrumentalities thereof; local governments, government-owned or -controlled corporations, and chartered institutions, as well as state colleges and universities. Each of these public institutions has five elements ‘common to most organizations in that they have goals, structures, resources, policies, and programs, ‘The framework elucidates on: (a) the sources of power of PAS; (b) what desirable attributes PAS must have in the exercise of this power; (¢) how it can utilize this power to enhance the people’s power to relate; and (d) how communities that PAS can enable or empower can be transformed into active participants in governance. Sources of Power of PAS ‘The power of PAS stems largely from: (1) its being an arm of the government, (2) its being an enforcer and implementer of public policy, (3) its operation as a service delivery system, (4) its role as a participant in the policy formulation process, (5) its technical expertise, and (6) its extensive and nationwide presence at all levels of government. PAS as an instrument of the State. ‘The public bureaucracy derives its power from its being an arm of the State. It is in effect the machinery through which the funetions and the authority of the government are exercised nationwide. It is fully supported by laws and state policies that legitimize this authority and its actions. It is through the public bureaucracy that the government may exercise its power of eminent domain. Through the exercise of this power, the government can, when the public interest so requires, expropriate private land for public use, provided government observes the requirements of due process.PHILIPPINE ADMINISTRATIVE SYSTEM AS AN ENABLING INSTITUTION 95 Figure 1. The Philippine Administrative System as an Enabling Institution PA Empowerment i The PAS ware Communities Elements >| ilding Characteristics * goal a) goals * organized * structures * resources * citicaly aware * has vision of what they policies Utilizing PAS Power to want * programs Enhance People Pow Power Base '* acknowledges people as Capability Building P Thana a ots uismate soiree and ena] | Process : Of state power * problem ideneaton fi enforcer of aw Deena et : 5 © implementor of public srlores law fairly ‘objective setting mr Imp] sirens pic fap] nose soon Pp extensive structure polcy efficiently structure building L|] | sericedetvery sytem] | « isttutionstzes access * participation in potcy to PAS serves outeome E ermutston * secanatzes and makes| | fective set-sustaing laa tena Operations transparent tonmunty Desirable Attributes * listens to and works ‘organieations with the people * Just and fair community problem- Sntortsment ofthe lw * ses local language’ solving capabilty : eps procedures + community sense of atic paren ane simple efficacy and power yoeane * partnershipinkage with a ee , outside structures: ecearaiee * community sl * efficient and service- management process oriented installed * accountable * pro-equity ENVIRONMENT Source: Amer, 2008, PAS as Enforcer and implementer of public policy. The Philippine administrative system enforces the laws and implements other public policies set by the executive and the legislative branches of government. As the law enforcement arm and policy implementer of government, PAS has discretion as to how it carries out policies and enforees the lave The legislature cannot fully anticipate all the conditions under which certain laws are to be enforced or implemented. Variations in implementation or enforcement may determine who receives the service and what, when, and where the service may be provided. The exercise of this discretion is a great source of power for PAS. PAS as a service delivery system. As a major service delivery system, PAS utilizes its authority, structure, and resources to produce specific services that it provides to specific groups of clients. The public school system is a delivery system that provides educational services, while the public health system, through its health centers and hospitals, delivers health services. Through its network of public organizations operating in various areas of the country, PAS provides a wide array of services. lathe delivery of these services, PAS exercises discretion as it decides on thé quantity, quality, adequacy, and timeliness of the96 DIMENSIONS OF PUBLIC ADMINISTRATION STUDY AND PRACTICE service it provides. The power of PAS is further magnified when those who need these setvices cannot afford to procure them from private firms who may charge at a much higher cost for certain services. When the demand for these services is greater than the supply, the power of PAS increases as it performs a gatekeeper role and ultimately decides on who receives what service and when, PAS as a participant in the policy formulation process. The participation of PAS in the policy formulation process stems largely from its role as enforcer and implementer and its technical expertise. As it applies the law, PAS gets to know of actual situations where practical problems may arise partly because of the lack of clatity of legal provisions, unanticipated conditions, and in some instances changes in the social environment, which may make some policies obsolete or inapplicable. While it may not directly make the decisions itself, PAS exerts influence on the policymaking process as it provides significant policy inputs that policymakers must consider when they decide on crucial policy issues. ‘The technical expertise of PAS, Another source of power of PAS is the mécuniilated technical expertise that it has gained over time a it deals with the myriad and complex issues that government must address. Most civil servants are hired for their professional training in their respective areas of competence. Beyond their personal know-how, however, they are backed by a systematic process of recording institutional decisions, practices, and related information that are passed on as organizational insights to members of PAS. ‘Through this documentation, PAS has a built-in process of creating and enrichin, reservoir of technical knowledge from which it draws. A significant part of this expertise is their understanding of the complicated rules and procedures of government. Its capacity to generate, use, and control technical information which are inputs in the provision of setvices o in the production of more information is another source of power of PAS. This power is increased if the public has no ready access to this information and is dependent on PAS for every data that they need to transact business with government agencies. Nationwide presence of the PAS. ‘The public bureaucracy has an expansive reach through which it can mobilize resources and support for its programs from all over the country. This network also provides the PAS with a wide base for its operations that it can utilize for any of its organized activities. Having Offices, personnel, and other logisties'tiar it can easily mobilize is another source of power of the PAS. Uses of Power Given its major power sources, how is PAS expected to use this power? Whose interest must it protect? Article II, Section 1, of the 1987 Philippine Constitution declares: “The Philippines is a democratic and republican State. Sovereignty resides in the people and all government authority emanates from them.” Under this provision, the people reposes, power and authority in the State to act on their behalf. ‘The bureaucracy or PAS as an arm of the state likewise derives its power from the people. It is for and in behalf of the people that this power should be used, because itis actually their power that they collectively repose in trust in the hands of elected and appointed public officials to enhance their welfare. Itis crucial that PAS consciously acknowledges the people as the ultimate source of its power. In a developing country like the Philippines where a significant portion of the population falls bélow the poverty line and where the average number of years of schoolingPHILIPPINE ADMINISTRATIVE SYSTEM AS AN ENABLING INSTITUTION 97 among the rural population is dropping, the bureaucracy can easily use its power to favor its own interest, the partisan political interest of the government in power, or the interest of the influential and the rich who will be using their resources to ensure that they continue to wield influence on the political and administrative leaders. This means that the general public, particularly those who are disadvantaged economically and politically, will have to tely on the bureaucracy to protect their interest through its responsible use of this power. The Philippine administrative system's responsible use of this power should resultin empowering the people, from whom this power emanates. The manner in which PAS should use its powers for the people is determined by what defines the narare and character of the power base. (See summary in Table 2) Table 2. Sources of Power and Its Responsible Us Sources of Power PAS as an instrument ofthe State PAS to consciously acknowledge the people asthe source and reason forthe ‘use of state power; be accountable; promote equity PAS as enforcer and implementer of public PAS must enforce the law fairly and justly, policy| ‘must implement public policies efficiently PAS as a service delivery system PAS must institutionalize acoess to is vice delivery system; it must be aficient i service oriented. PAS as participant inthe policy formulation PAS must be consultative and process paticipatory. PAS technical expertise PAS uses local language and keeps administrative procedures as simple as possible PAS extensive and nationwide services PAS must be decentralized and transparent ints operations. As enforcers of the law and implementers of public policy, the bureaucracy must use its power with fairness and justice. This means that it is consistent in enforcing the law, regardless of who is involved. Sanctions are never imposed arbitrarily: The implementation of public policy must be dealt with in a similar fashion, If no one is unduly advantaged or disadvantaged because of PAS’s exercise of administrative power, then there is fairness and just enforcement of the law. Asa service delivery system, PAS can use its power to make these services accessible physically, financially, and administratively to its clients. This should result in fast and quality response for everyone, without exception. Being efficient in its use of resources will enable PAS to reach more people and provide more services for the money it gets from the government. ‘As an institution that has technical knowledge and is consulted in the formulation of public policies, PAS can make sure that it serves as a conduit for people's ideas on how government can serve the people’s needs better. Technical knowledge is valuable but the bureaucracy must realize that the people or communities, who know their needs and the realities prevailing in their areas most, thay have more critical information in formulating.98 DIMENSIONS OF PUBLIC ADMINISTRATION STUDY AND PRACTICE solutions to their local problems. The bureaucracy must share its power with the people by consulting and listening to the wisdom of the people and it must work and get the people involved in programs designed for them. In this way, the bureaucracy promotes consultative and participatory methods. The Philippine administrative system can likewise use its powers more effectively if it decentralizes its decision making and ensures that decisions are made at the levels close to those who will be directly affected by these decisions, With the passage of the Decentralization Act, local governments have been given more power to decide on local concerns. The bureaucracy can facilitate decentralization further in its field offices, especially those in direct contact with clients in communities. Finally, PAS can best communicate with the people and communities it serves if itis conscious that the use ofa foreign language may adversely affectits frontline communication with citizens in rural communities. Using the local language in signage and public notices and keeping procedures for over-the-counter transactions with the public as simple as possible make the bureaucracy more accessible and less intimidating to the public. Desirable Characteristics of PAS Having described how PAS is expected to use its power, there is a need to identify desirable characteristics that it must develop as itinstitutionalizes the responsible use of its power, We hope that PAS will work on acquiring the following attributes: 1. PASisa just and fair enforcement body if it treats all its clients in the same way, regardless of their profession, position, income, and status in society. 2. PASis participatory and consultative when, as far as practicable, itlistens to and. ‘works with the people in the local language and keeps its procedures simple. 3. PASis accessible if it identifies and minimizes access problems that stem from physical distance, complicated aclministratve rules and requirements, and financial costs that the clients or the public must bear in availing themselves of services 4, PAS is for decentralization if it recognizes the value of decisions made at the levels closest to those who are affected by the decision. 5. PASis efficient if it provides more and quality service at less cost to the people. 6. PASis accountable for the use of all ts power if it explains and makes regular reports to the public and politcal leaders. This report should illustrate how it thas used the authority, resources, and information placed atts disposal to carry ‘out public policies 7. PAS promotes the cause of equity if it recognizes the needs of the disadvantaged in Philippine society and systematically reviews how its programs can provide them with alternative services when goods and services in the market are not within their means.PHILIPPINE ADMINISTRATIVE SYSTEM AS AN ENABLING INSTITUTION 99 PAS Empowerment Checklist Having listed these attributes, we complete the concretization of how PAS can empower by providing a checklist which it can use to examine the manner and ways through which it relates to its clients and public in contact. 1. Just and Fair Enforcement of the Law ‘A. Are PAS law enforcers clear on what the law provides and how itis tobe enforced? B. Are they aware of special provisions that are intended for particular types of offenders (e.g, minors, women, indigenous peoples)? Are sanctions on violators as mandated by law or administrative rules enforced ‘equally regardless of the violators’ position, income, status, or influence in the ‘community? D, Are there instances when politicians interfere in the enforcement of laws or rules to favor theie friends, relatives, or other influential parties? E, Isthere enough support for violators who may not have the resources to hire the services of a lawyer? F._Isthere enough information provided to clients so that they are fully aware of the rules and regulations and their rights? Are they not disadvantaged by the ‘organization's control over information? 2. Participatory and Consultative ‘A. Inthe identification of the problem, was there a particular target clientele in mind? B. If there was such a group of clients, was client analysis done to get information about the group in terms of how homogenous they are and ‘what interest groups exist among them? C. Was there a deliberate effort on the part of the administrators to get clients involved in the formulation or identification of the problem? D. To support clientinvolvementiin the definition of the problem, were clients’ representatives given time, resources, ad facilities for their use? B, Did the organization provide ways through which clients can participate in the determination of the strategy to be adopted for dealing with the problem? 3, Accessible A. Are services made available to clients ata time convenient to them rather than. to the public officials? B_ Are more resources spent on client services rather than on administrative infrastructure (e.g, office furnishing)? . Are office staff deployed in such a way that frontline offices have more staff during peak hours? D, Istherea conscious effort to put better qualified personnel in frontline service areas where there are more opportunities to serve clients? E, Is there continuous effort on the part of the organization to make its frontline staff show how service oriented they are in their dealings with clients? E__Are the rules and procedures for frontline transactions simple enough for clients to comprehend and comply with?100 DIMENSIONS OF PUBLIC ADMINISTRATION STUDY AND PRACTICE 4, Decentralized A, Are administrative decisions and actions made, as much as feasible, atthe level closest to the public affected by these decisions? B. Are the functions of different departments decentralized in order to reduce red tape, free central officials from administrative details concerning field operations, and relieve them from unnecessary involvement in routine and local matters? C. Are officials infield offices given the authority and responsibility to use their discretion to accommodate clients, where necessary? 5. Efficient and Service Oriented A. Are offices grouped primarily on the basis of fanctions/clientele areas to achieve simplicity, economy, and efficiency in government operations and minimize duplication and overlapping of functions? B, Isthe organizational structure flexible enough to accommodate the needs of clients and not simply the efficiency consideration of the organization? C. Towhat extent was the decision on where to locate the department’ field offices guided by the need to reduce physical distance between the ‘organization’ frontline offices and the clientele they must serve? 6. Accountable ‘A, Is there amechanism through which the PAS reports to its clientele regularly oon the status of servicesit provides, how resources are used, and what its fature plans are? B. Isthere a way for citizens or clientele to ask the PAS for information on the problems which they are trying to solve? C. Is there too much stress on the statistics and other reports such that attention is deflected from the service needs of clients? 1D, Do the procedures provide for ways of checking possible abuse, misuse, or non-use of administrative power or for grievance mechanism through which clients ean seek redress? 7. Pro-equity ‘A. Are there requirements that make demands on and result in the exclusion of poorer clients (@g, request forms in English not being understandable to applicants who may not have gone beyond six years of schooling, ora minimum user fee which a needy applicant may not be able to pay)? B._ Indealing with the problem or providing the service, are there other costs to clients (travel time, loss of income, lack of access to someone who can take care of kids or other tasks that need to be done) that are not considered? C. Are the procedures of the institution biased against those who are without formal education or ata low level of income or resources? D. Does the program provide for ways through which fees paid by clients who ‘can afford to pay can subsidize the cost of service for those who are less able topay for the service? Acthis point, two of the three boxes in the framework (Figure 1) have been described. ‘The next question is how does the “capability building approach as the empowerment process” occur when PAS utilizes power in the responsible manner, once it has taken on its desirable attributes as being (a) just and fair enforcer of the law, (b) participatory andPHILIPPINE ADMINISTRATIVE SYSTEM AS AN ENABLING INSTITUTION 101 consultative, (¢) accessible, (d) decentralized, (¢) efficient and service oriented, (f) accountable, and (g) for equity. The Capability Building Model ‘The capability building exercise as elaborated in Hernando’s documentation is the “building of people-based structures and institutions which is the real essence of the concept of capability building. Capability building means enabling the people to organize themselves around common needs and to work together toward common ends” (Hernando, 1985, p- 12). This approach seeks to transform “lethargic, slow-moving, apathetic communities, into organized, politicized and productive communities. This is a process where change agents working with the community, through the use of the learning by doing exercise, enable the community to define their problems, set realistic change targets, plan and implement community programs and set up community based structures to ensure the continuity of its problem-solving capacity” (Hernando, 1985, p. 9). ‘A documentation of the Community Management Program of the Development ‘Academy of the Philippines in the eighties described and reflected on its attempt at a program of community change through two separate but interrelated projects. The first is contained in an account of the first bartio immersion program of Career Executive Service Development Program participants (Carifio & Virieza, 1980). The second volume from which the capability building process is drawn is the “tuklas-yaman” project which sought to establish how the computer-based exams exercise can be utilized as change technology at the community model, as it equipped four client communities with community problem-solving skills (Hernando, 1985, p. 2) ‘Adapting the community building approach from this experience, the framework seeks to show how PAS, through its responsible use of its power, can contribute to help organize communities sustain their capacity to deal with their problems and to empower these communities to participate meaningfully in government development programs. Before PAS can work with organized communities, however, it must appreciate the characteristics of organized communities, their strengths, and their sense of efficacy and power. Empowered communities envisioned in the capability building approach are organized, have a clear vision of their desired state, and are critically aware of the forces in their environment. They are capable of identifying their problems, determining how they can deal with these problems, planning for a specific course of action, and setting up structures in the community to carry out and sustain these problem-solving mechanisms ‘As a result of these processes, the community emerges with a sense of efficacy and power as ithas self-sustaining community organizations though which it develops linkages with outside structures (Hernando, 1985, pp. 10-11). TRANSLATING THE FRAMEWORK INTO A TEACHING METHODOLOGY ‘The usc of the framework which envisions the Philippine administrative system as working closely with communities prompted the use of a specific teaching methodology for a graduate course on the PAS. This one-semester course integrated a community exposure in an organized urban poor barangay.102 DIMENSIONS OF PUBLIC ADMINISTRATION STUDY AND PRACTICE Unlike the community management program which sought to build the community's capability, this methodology was designed primarily as a structured learning experience for the graduates students. For the students, the community exposure had two objectives: (1) to enable graduate students, most of whom are civil servants, to experience working with an organized urban poor community in dealing with a specific community problem and in the process appreciate the community as a teacher and an ally, and (2) increase the students’ awareness of the realities prevailing in these communities and deepen their understanding of the conditions under which communities seek services from the government. On the part of the community, the exposure program was an opportunity to (1) partner with the class in addressing a specific problem that the community/barangay needs assistance on, and (2) tap the class's technical expertise and access to government agencies to acquire information and seek its advice on how they deal with a specific community problem. The choice of the community.” In keeping with the requirements of having a critically aware community, the barangay selected for the class’ exposure activity was chosen for the following reasons: (1) it has strong people’s organizations which were assisted by the College of Social Work and Community Development of the University of the Philippines Diliman; (2) leaders of these people’s organizations were eventually elected as barangay officials; and (3) the barangay had a clear idea as to how it intended to seek the class's assistance in dealing with a specific community problem. ‘The community exposure for all of the classes proceeded along similar activities. The first visit was usually an exploratory meeting with the community/barangay leaders where the latter orient the class about the community. On the second visit, the class gets to familiarize itself with the barangay, walking through all of its streets and meeting some of its household heads. After its second visit, the class breaks into teams, depending on how they plan to assist the barangay on the problem to be resolved for the semester. The working teams then work on the class's action plan, visiting the community and various local or national government offices as required by the plan. Towards the end of the semester, the class consolidates the outputs of its various teams into a class report written in English and Filipino. The semester ends with a class presentation of its report, in Filipino, to the barangay, a discussion, and the class giving the barangay its copy of the English and Filipino versions of the class report. Copies of these reports are also kept in the NCPAG library and are used as a reference for other Public Administration (PA) 208 classes. Among the class reports for this community exposure experience are those on the following topics: 1, Strengthening GO-NGO-PO Relations: The Pasay City Experience (Second Semester, 1996-1997) (housing) 2, Return to Roots: Learning to Empower the Community Towards the Improvement of the PAS (First Semester, 1997-1998) (training of barangay officials) 3. Towards an Inctease of the Barangay Coffers First Semester, 1998-1999) (training on barangay finance) 4, Acquiting Private Property for Public Use: Identifying Options for Barangay X (Gecond Semester, 19981999) (acquiring land for a barangay hall) 5. Proposed Strategics on Waste Management (First Semester, 1999-2000)PHILIPPINE ADMINISTRATIVE SYSTEM AS AN ENABLING INSTITUTION 103 6. Project: Barangay Hall (First Semester, 2001-2002) 7. Constructing a Five Storey Multipurpose Barangay Hall (First Semester, 2002 2003) What did the students gain from this community exposure? Reflecting on their experiences in working with the community on a number of their problems, graduate students from the different classes disclosed their insights into community- government interactions, thus: It is through our active interaction with the community that we become socially aware of the realities of their condition and the difficulty of the community in tclating with the government and its intricate procedures and processes. We and the institutions we represent have become virtual strangers to them (the community) and the PAS itself, which in the eyes of the common citizen has become an intimidating, unfriendly, uncharted, and unnavigable arca. The teaching methodology enabled us to see the bureaucracy from a different perspective and the people's perception of it. We were given the opportunity to know how itis to feel asan outsider. This should serve as a challenge to us ‘when we getback to our respective offices. ‘The collective talents and motivation of the Barangay X community would do well to serve their own needs. With the partnerships forged between the community and other government entities, they are not anymore beneficiaries but key players who deserve the right kind of services from both government and nongovernment entities. ‘The knowledge gained did not come solely from the theories and concepts learned in the classroom, nor simply from the views and ideas exchanged, More importantly, by imparting knowledge gained to help others better themsclves, wwe also gained valuable lessons from those we seek to serve. ‘The PA 208 class has experienced to not only touch base with people in the community but in the process also develop within ourselves a deep sense of awareness and commitment in serving them in a way thatis convenient to them. QUESTIONS FOR NCPAG AND THE ASSOCIATION OF SCHOOLS OF PUBLIC ADMINISTRATION IN THE PHILIPPINES ‘The call of the times is for participatory governance. This call has placed new demands on public service officials, who are now expected to foster more dialogue between and among the state, private sector, and civil society, three actors with key roles in the political, economic, and administrative affairs of the country: The bureaucracy is now to be more open to its stakeholders who are to be directly involved in decisions that concern theit welfare, The 6" Global Forum on Reinventing Government held in Korea in 2005 picked participatory and transparent governance as its theme. Indicative of the growing importance attached to participation of citizens and stakcholders in government affairs, this conference concluded, among others, that “participation and transparency can each improve the ability to govern and the quality of governance within a society” (UN Department of Economic and Social Affairs, 2007, p. 83).104 DIMENSIONS OF PUBLIC ADMINISTRATION STUDY AND PRACTICE What is the implication of these developments for academic programs that seck to provide higher education for national and local officials? What new frameworks and teaching methodology should be considered to better prepare these officials for the new tasks and roles that they are to play in an open and more responsive bureaucracy? ‘These new developments demand more of schools of public administration like NCPAG and other ASPAP schools that are in the forefront of academic training for public officials. Major shifts in views on how the State should relate to citizens require new lenses for reconstructing existing theoretical frameworks and reviewing teaching, like ‘methodology, in public administration. The following are the questions that NCPAG and ASPAP may consider given these new developments 1, How can existing frameworks that explain the nature of the interaction between the bureaucracy and its publics be reformulated to make more explicit the need for a stronger service orientation among public officials, particulary those who are directly in contact with citizens in frontline transactions? 2, Ina nation like the Philippines where a greater portion of its population seeking services from the government are likely to have less schooling than members of the bureaucracy, should training for public officials prepare them to have a bias for service specifically for, but not limited to, the marginalized and disadvantaged sectors? 3, Is experiential learning in rural and urban poor communities valuable for both ‘graduate and undergraduate students, to ensure that their professional training sensitizes them to the context of Philippine communities’ intesface with members ofthe local and national bureaucracy? 4, Should NCPAG and ASPAP consider the development of a community exposure module to promote the systematic transfer of values and skills to the ‘bureaucracy so that public organizations’ processes and systems ate client friendly and sensitive to participatory approaches? 5. Ifexperiential leanings to be considered vis-i-vis the theories discussed in the classtoom, is it mode of learning that should be integrated in NCPAG oF other ASPAP schools’ preferred teaching methodology? As an institution of learning for public and civil society organizations, the NCPAG has had a long tradition of reexamining its curricular offerings regularly to assess its relevance and responsiveness to perennial and emerging concepts in the field. At this time, the concern is how NCPAG and other ASPAP schools can enrich their cussicular offerings and array of innovative teaching methodologies. These institutions must ensure that the academic preparations of their students reflect a balance of technical expertise and a sensitivity to “voice” the clamor to be open to and to take the initiative in developing mechanisms which will allow greater involvement of its clients, citizens, and other stakeholders in governance. 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