QUIZ #4 REVIEWER | BPA101
legitimacy
CHAPTER 3
CONCEPT OF BUREAUCRACY
Achieving the purposes of the government is what
bureaucracy is designed for.
ETYMOLOGY
● According to Richard John S. Baker
● Derived from:
○ FRENCH word bureau = office
○ GREEK word kratos = power or
strength
BUREAUCRACY
● “Exercise of power by the officials of the
government in accordance with the
instructions of those who wield sovereign
power in the state.”
● Understood by others as a specific form of
social organization, administrative in nature,
which deals with the activities of a large
number of people like the family, social club,
or church
● Others perceive it as an organization that is
designed to accomplish a multitude of
functions which is impossible to achieve
without the help of a large organization and
its system
● Sum total of all administrative agencies of
the government
○ Span from the executive branch,
including that of the administrative
offices that form part of both the
legislative and judicial branches of
the government
○ These administrative agencies
facilitate the effective delivery of
the services and other concerns
● Conceived by MAX WEBER, a German
sociologist and economist
○ An organization which is considered
as an extension of the state
● Regarded as the “fourth branch” that is
ranked in the same level with the executive,
legislative, and judicial branches
● The STATE naturally fulfills the needs and
wants of the public by way of the services
that are delivered to them
○ Gives the “bureaucracy” a sense of
● To Weber, bureaucracy is the same as the
power elite which is based on three assets,
that include (1) expertise, (2) information, and
(3) access to secrets
○ EXPERTISE
■ Technocrats: experts that
provide the technical “know
how” in running the
government
○ INFORMATION
■ Bureaucracy has the
information that is essential to
accomplish the objectives of
the entire government
instrumentality
○ ACCESS TO SECRET
■ It has access to all sensitive
information which the
government alone could use
and enjoy
CHARACTERISTICS OF BUREAUCRACY
(1) A well-defined hierarchy
● In order to avoid any confusion
● A necessary precondition for the government
to work effectively and efficiently and to
avoid any wastage in the process of
dispensing the functions of the government
(2) Divided between vertical and horizontal lines
for division of work and functional specialization
● Facilitates the accomplishment of the
objectives of a particular bureaucracy
(3) A framework of fixed rules
● Avoids what is prohibited by existing policies
● The more it operates within a framework of
fixed rules, the more bureaucratic
organization becomes value driven and
neutral
(4) Specifies the duties and responsibilities
● Result into a smooth and less bumpy
operation of the government
● Avoids more or less the duplication of works
● Saves more time and money on the part of
the employees and government
● Gives the government the opportunity to
save its resources and concentrates on the
 more important task of delivering the basic ■ Army
services ■ Navy
■ Justice
(5) Employs proper and scientific selection of ■ Finance
individuals ■ Directorate General of Civil
● Those who desire to work in the government Administration
should be screened carefully in order to
avoid any liability in the process (3) REVOLUTION PERIOD
● Selection through merit and fitness provides ● Enactment of the Malolos Constitution
the civil service with more qualified people ○ Served as the foundation of the
in the government existing government
● Has produced quality officials and ○ Defined the powers of the
employees revolutionary officials
● In the past, only the best and the brightest ● 7 DEPARTMENTS:
should be employed in its bureaucracy ○ Foreign Affairs
○ Interior
(6) Use of impersonal approach in the ○ Finance
organization ○ War
● Application of the policies and rules which ○ Army and Navy
should be implemented regardless of the ○ Public Institution
person who will be affected ○ Public Communication and Works
○ Agriculture, Industry, and Commerce
EVOLUTION OF THE PHILIPPINE BUREAUCRACY
(1) PRE-COLONIAL PERIOD (4) AMERICAN COLONIAL PERIOD
● Simple and less complicated ● Highly centralized government
● Leadership revolved around one person ● Promised the Filipinos to give their
● BARANGAY independence as soon as a stable
○ Handled all the needs of the public, government can be established in the country
from economic trade to protection of ● The Americans put up a CIVIL SERVICE
the entire community which valued the principle:
○ Played an important role in the ○ “Public office was a public trust and
collection of taxes and the that the civil servants were made
administration of justice accountable to the public”
○ Handled by a DATU or RAJAH ○ Given spirit by the Philippine
■ Exercised all the powers of the Commission which enacted into a
government policy
■ Assisted by a council of the ■ The Establishment of an
elders who were often Efficient and Honest Civil
consulted in matters that Service in the Philippines
require the decision of the ● 6 DEPARTMENTS
datu ○ Finance
○ Justice
(2) SPANISH COLONIAL PERIOD ○ Public Instruction
● Highly centralized government ○ Interior
○ Controlled everything ○ Agriculture and Natural Resources
● Civil service was created ○ Commerce and Communications
○ Focused with the executive,
legislative, judicial, and religious (5) COMMONWEALTH PERIOD
functions ● Transitory government
○ Small; composed of the following ○ Will pave the way for their
departments: independence
 ● The Filipinos were already educated and
conscious
● 1935 CONSTITUTION
○ Contained a separate provision on
the civil service
○ All institutions of the government
were under the civil service
○ Entry in some ranks must be done
through merit and fitness
● 3 ADDITIONAL DEPARTMENTS
○ National Defense
○ Labor and Health
○ Public Welfare
(6) JAPANESE PERIOD
● Own system of civil service
○ All-Filipino casts
● The first time that a group composed
basically of all Filipinos occupied most
positions in the government
● 6 DEPARTMENTS
○ Foreign Affairs
○ Finance
○ Justice
○ Agriculture and Commerce
○ Public Works and Communications
○ Education
(7) PERIOD OF INDEPENDENCE
● Charting their own direction free from any
direct interference from any colonial master
● Philippine government expanded
resulted to the creation of additional
departments
○ To cater the growing needs of the
general public
● Administration became more complicated
● Problems in bureaucracy
○ Unqualified personnel
○ Graft and corruption
○ Incompetence
○ Low prestige
REORGANIZATION LAW
● When President Ferdinand Marcos
assumed the presidency in 1965, he
immediately asked the legislative
department to consider a reorganization
plan for the government
● Given spirit by the Congress (1968)
● In the period that followed, Marcos decided
to reorganize the executive department
through Presidential Decree No. 1
CHARACTERISTICS OF
BUREAUCRACY IN THE PHILIPPINES
Bureaucracy was developed by Max Weber to make
things easier for the public and private sector.
(1) Vulnerability to Nepotism
● NEPOTISM
○ Act of accepting or giving preference
to family members in filling up vacant
government positions
○ Spoils must benefit first the members
of the family
○ Family Corporation
(2) Perpetuation of the Spoils System
● Inherited from the colonizers
● Heavily relied upon the Americans in the past
○ Result of the payments of political
debts incurred by a candidate during
the course of his campaign in trying
to win a government position
● “To the victors belong the spoils”
(3) Apathetic Public Reaction to Bureaucratic
Misconduct
● Very little attention is given to bureaucratic
misconduct that often occurs in most
government offices
and ● The people would rather use their free time
spending most of it with their respective
families than use it trying to understand on
why bureaucratic misconduct happens
● Misconducts in the government become a
cycle with the apathetic reaction of the
personnel working in the government
bureaucracy
(4) Survival of Historical Experience
● People are believed to be nostalgic of the
past
● Prevents them from being objective with the
realities of the present time
● Filipinos tend to be selective as they try to
relate what they have with their past
experiences
● Filipinos could not easily forget what has
transpired in the past
 ○ Make them more stagnant than ○ It takes time before somebody can be
actually moving to accept current considered to work in the government
developments bureaucracy

(5) Non-Special Typing of Bureaucrats (2) COMMISSION ON AUDIT

● Several employees in the government of the ● To ensure that the resources of the
Philippines have started to lose their faith government is not wasted and is dispensed
with the way things are done in the country entirely for the purpose to which these
● Most of the employees in the government do resources are intended
not anymore treat their positions as ● Under the 1987 CONSTITUTION
something that can be a source of proud ○ Established as an independent body
and admiration ○ To see to it that revenues and
○ Their minds are simply relegated to expenditures of the government are
just doing their daily routines accounted directly and disposed in
● A necessary consequence of some negative accordance with the mandated
bureaucratic behavior purpose
○ “Shall have the power, authority, and
(6) Lack of Independence from Politics duty to examine, audit, and settle all
● Often called as politization accounts of the government. It shall
● Since the bureaucracy is under the executive also have exclusive authority to define
department, with the exception of those the scope of its audit and
which are under the legislative and judicial examination, establish the techniques
departments, it is believed to be vulnerable to and methods, and promulgate
a lot of politicking accounting and auditing rules and
● Affected the operation of the government
regulations.”
● Governance Commission on GOCCs (GCG)
● Displaced some good people from the
○ To audit the in and out of the
government
revenues of all government own and
controlled corporations
REGULATING AND
CONTROLLING THE BUREAUCRACY ○ Imperative, in order for the
(1) CIVIL SERVICE COMMISSION government to monitor the different
● Central personnel agency of the government government corporations
● In-charge of the entire civil service in the ○ To strengthen the accountability of all
country its officials in dispensing their
● Under the 1987 CONSTITUTION respective functions
○ Embraces every branch, agency,
subdivision, and instrumentality of ECOLOGY OF BUREAUCRACY
the government IN THE PHILIPPINES
Politization
■ Includes all of the government
● Simply unavoidable
owned and controlled
● A common “carte du jour”
corporations
● Not at all bad
● Expected to establish a career service
○ May sometimes result into something
● Pursue all other measures that encourage the
that is positive and useful on the part
effectiveness, efficiency, responsiveness, and
of the government
courtesy
● Shall strengthen the merit and rewards
James Anderson
system among government employees
● There are several institutions that compete in
○ To ensure that the right people in the
trying to influence the decision of the people:
government are hired and retained
(1) Office of the Chief Executive
○ Most influential
 ○ From which all agency heads owe
their positions
○ Any instruction that would come from
the chief executive is treated with
utmost regard and could not be
ignored
(2) Congress
○ Composed of two houses: Senate and
House of Representatives
○ Budget Deliberation
■ Most common politicizing
○ “Power of the purse”
○ Confirmation of the appointments of
their respective executives
■ A not so cooperative agency
head would not pass the
discriminating taste of the
congress (Commission on
Appointments)
(3) Judicial Department
○ Normally felt during the
implementation of a policy or
program
○ When a case is brought before the
Supreme Court to determine its
constitutionality
○ Legality of the policy or if the agency
concerned exceeded in its capacity to
implement such a policy
(4) Other Government Agencies
○ When one agency decides to
implement a program, it normally
involves the concern of other
government agencies
○ One particular agency should
coordinate with the others
(5) Public
○ Final arbiter of everything
○ Always expected to react to policies
that are unpopular to them and would
not take it simply without the need of
asking the government
○ Whatever is done by the government,
the same is always subjected to the
critical and sensitive opinions of the
general public
○ This is why the former is always
particular on what the public wants
THE EVOLVING FIELD OF
THE PHILIPPINE BUREAUCRACY
“THE BUREAUCRACY IN THE PHILIPPINES”
by ONOFRE CORPUZ
New Public Management
● MIRSHARIFF TILLAH
● Advocated the idea that the private sector
should play more in the delivery and funding
of government services
● Managerialism and New Institutional
Economics
○ MANAGERIALISM
■ Introduction of the private
sector methods in the public
sector
○ NEW INSTITUTIONAL ECONOMICS
■ Application of incentive
structure in the delivery of
public services
● Involves the following elements:
○ Preference for market mechanisms to
bureaucratic mechanisms
○ Catalyzing all sectors to solve
problems
○ Empowerment of citizens
○ Promotion of competition
○ Redefining clients as customers
○ Decentralization
○ Creation of performance measures
Good Governance
● Has seen most of the developing countries
trying to comply with the pronouncement of
several foreign institutions like the
International Monetary Fund and World Bank
● Premised on the fact that a sound,
transparent, and accountable government
would be able to deliver the best services to
the general public
● MIRSHARIFF TILLAH
○ “Globalization, Redemocratization,
and the Philippine Bureaucracy”
○ Indicators of the concept exclusively
developed by the World Bank
■ Government effectiveness
■ Voice and accountability
 ■ Political stability and absence
of violence
■ Regulatory quality
■ Control of corruption
■ Rule of law

President Benigno S. Aquino III

● “Kung walang corrupt, walang mahirap.”
● Philippine Government Action Plan (2012)
○ Response to the invitation of the Open
Government Partnership
○ Fighting graft and corruption in the
government
○ Establishing transparent,
accountable, and participatory
governance to achieve poverty
reduction, inclusive growth, enhanced
peace, and ecological integrity
○ Means of improving the delivery of
public services
 CHAPTER 4 ○ A government organization employs
funds
GOVERNMENT AS AN ORGANIZATION ○ Accountability is a process that is
Organization (Richard Daft) imperative for government
● A social entity that is goal directed and organizations
deliberately structured ○ Appointment in any government
○ SOCIAL ENTITY: made up of two or organization is subject to pertinent
more people rules created by a civil service
○ GOAL DIRECTED: created for the commission
purpose of achieving specific goals ○ Any government organization is
○ DELIBERATELY STRUCTURED: always subject to the accounting and
division of functions auditing process
○ Government organization is created to
Organization (Laurie Mullins) promote the interest and not to gain
● An important part of the society involving any profit
both public and private sectors including the ■ This sets government
charities and the voluntary sectors organization apart from other
● Has a number of functions to perform equally important private
● Created to achieve its objectives that could organizations
not be accomplished through individual
efforts ORGANIZATION THEORIES
Also known as “Management Thinking”
● The survival of an organization depends on
its people, objectives, structures, and
“Management and Organizational Behavior”
management
By Laurie Mullins

Government as an Organization
(1) Classical Approach
● An expanding ring of organizations with core
● Latter part of the 19th century
government at the center, followed by
● To balance the issue of productivity
agencies and public enterprises (Institute of
● SCIENTIFIC MANAGEMENT THEORY
Internal Auditors)
○ Frederick Taylor
○ CORE GOVERNMENT
○ “One best way of doing a job”
■ Three essential governing
○ Proposed a more efficient method of
bodies (executive, legislative,
coordinating and controlling the
judicial)
functions of the workers
○ AGENCIES
● BUREAUCRATIC ORGANIZATION THEORY
■ Different public organizations
○ Max Weber
■ Commissions that help the
○ More technical approach
departments under the core
○ His bureaucratic structure is more
government
specific and superior
○ PUBLIC ENTERPRISES
■ Independent enterprises or
(2) Human Relations Approach
corporations
● Attention of Management and Presence of
■ Provide additional sources of
Informal Groups
funds to the government
● Importance of human behavior
● Comprised of system of organizations that
● 1920s
functions individually to achieve a common
● Social factors at work and behavior of
objective in favor of the general public
employees are also critical in making the
● SET OF ASSUMPTIONS
organization productive
○ A government organization delivers
● HAWTHORNE EXPERIMENT
important programs and projects
○ Western Electric Company
 ○ Demonstrated the relevance of (1) Planning
psychological and social needs of ● Process of determining organizational
employees in the organization goals for its future performance and
○ RELAY ASSEMBLY TEST ROOM deciding on the tasks and use of resources
■ Workers who are given extra needed to attain them
attention and apparent ● FIRST STAGE
interest were able to ○ Development of the overall plan of
PRODUCE MORE the organization
■ “Hawthorne Effect” ● SECOND STAGE
● PRESENCE OF INFORMAL GROUPS ○ Translation of the overall plan into
○ Provide other employees with action
additional motivation to work well ○ Creation of tactical and operational
and contribute more to the benefit of plan
the organization ● THIRD STAGE
○ Recognition and acceptance ○ Identification of operational factors
● FOURTH STAGE
(3) Systems Approach ○ Execution of the plan
● Incorporated the principles of the classical ● FIFTH STAGE
and human relations approach ○ Evaluation and monitoring of the
● More methodical manner plan
● Ludwig von Bertalanffy ○ Making some adjustments in its
● Considers the organization as a whole execution
composed of several parts that are related
with one another (2) Organizing
● Fundamentally connected to its external ● Assigning tasks, grouping tasks into
environment that constantly affects its departments, delegating authority, and
internal aspects and processes allocating of resources across the
● “OPEN SYSTEM” - interacts with the organization
immediate environment in multiple channels ● ORGANIZATIONAL STRUCTURE
○ How tasks are divided to individuals
(4) Contingency Approach and departments
● Reiterates the importance of structure as a ● ASSIGNING OF QUALIFIED PERSONNEL
primary factor in the performance of the ○ Provides every organization with the
organization practical advantage of competing
● Renewing the significance that the structure with other related organizations
has provided to all organizations ● PROVISION OF CRITICAL RESOURCES
● Does not subscribe to the basic tenet of “the ○ Important assets of the organization
one best way” of doing the job ○ Financial, human, physical, and
● Extension of the systems theory information resources
● Essentially connected to its external
environment (3) Leading
● Creation of shared culture and values,
MANAGEMENT FUNCTIONS communicating goals to employees
Management is the attainment of the throughout the organization, and infusing
organizational goals in an effective and efficient
employees with the desire to perform at a
manner through planning, organizing, leading, and
high-level
controlling organizational resources.

(4) Controlling
“Administration Industrielle et Generale”
● Systematic process of regulating all
by Henri Fayol
organizational activities to make them
 consistent with the expectations established
in plans, targets, and standards performance
● An action which adjusts operations to
predetermined standards and its basis is
information in the hands of managers
● Can be effectively pursued through the
process of regulating the different activities
of the organization
ORGANIZATIONAL DESIGN AND STRUCTURE
Organizational Structure
● Formal divisions, groupings, and coordination
of tasks within an organization
Organizational Design
● Idea of developing and changing the
structure of the organization
Traditional Organizational Designs
(1) Simple Structure
○ Normally adopted by a starting
organization
○ Less departmentalization
○ Broad span of control
○ Authority is concentrated into one
person
○ Little formalization among its
employees
(2) Functional Structure
○ Grows bigger, employees are added,
more specialized and formalized
○ Groups related occupational
specialties into specific departments
○ Functional Departmentalization
(3) Divisional Structure
○ Biggest among the three
○ Made up of several divisions or units
○ Each division enjoys limited
autonomy and is headed by a
division manager
Contemporary Organizational Design
(1) Team Structure
○ Small, tightly focused team that is
often employed to tackle big ticket
projects in minimal numbers
○ No clear line of authority between
the top managers and lower-level
employees
(2) Matrix Structure
○ Cuts across several departments of
the organization
○ SPECIALISTS - adept and capable
individuals working on a specific
project
○ Dual chain of command
■ Functional Department
■ Project-Based Department
(3) Boundaryless Structure
○ Others think as not a structure at all
○ Boundaryless Organization
○ Eliminates the chain of command
○ No limits on the spans of control
○ Jack Welch
Elements of Organizational Design (WDSFCD)
(1) Work Specialization
○ Degree on how the various tasks in
the organization are divided into
smaller jobs
○ To prevent the concentration of jobs
in one individual and spread them to
other employees in order to increase
productivity
(2) Decentralization and Centralization
○ DECENTRALIZATION
■ Empowering the employees
○ CENTRALIZATION
■ Limits the authority to certain
individuals
(3) Span of Control
○ Determines the number of levels and
managers that the organization can
accommodate
(4) Formalization
○ Standardization of all procedures of
the organization
(5) Chain of Command
○ Continuous line of authority that
extends from the top management
down to the lower level of the
organization
(6) Departmentalization
○ Classification or grouping of works in
the organization
MANAGEMENT TECHNIQUES
An integrated method of analyzing and solving a
recognized type of management problem in a
detailed and systematic manner.
(1) Total Quality Management - 1950s
● An upgrade to the traditional method of
managing an organization after the World
War II
● A philosophy as well as a set of guiding
principles that represents the foundation of a
continuously improving organization. It
pertains specifically to the application of
quantitative methods and human resources
in order to improve the process within an
organization and exceed customer needs
now and in the future
(2) Management by Objectives - 1954
● “The Practice of Management” by Peter
Drucker
● An integrated system where managers and
employees define goals for every
department, project, and person, and
employ them to check subsequent
performance
● FOUR MAJOR STAGES
○ Setting of goals
○ Development of Action Plans
○ Review of Progress
○ Appraisal of the Overall Performance
(3) Strategic Management - 1980s
● Dominated the practice of management
● First adapted by the armed forces of the
United States of America
● The art and science of formulating,
implementing, and evaluating
cross-functional decisions that enable an
organization to achieve its objectives
● STRATEGY FORMULATION
○ Developing the vision, mission, and
objectives
● STRATEGY IMPLEMENTATION
○ Development of important policies
○ Allocation of resources
● STRATEGY EVALUATION
○ Final stage
○ Whether it is successful or not
(4) New Public Management
● Most unique
● A model of governance and a set of
management techniques for public
administration based on the practices
coming mainly from the private sector
LEADERSHIP AND DECISION-MAKING
Leadership
● Measured by the kind of decisions that a
manager makes for the organization
Decision-Making
● Process of identifying problems and
opportunities and then resolving them. It
also encompasses efforts before and after
the actual choice
● PROCESS
○ Identification of a problem
○ Analysis of causes
○ Creation of alternative
○ Selection of alternatives
○ Implementation of chosen alternative
○ Evaluation and feedback
(1) Trait Approach
● Personal qualities of individuals
● Physical Features or Demographic Variables
○ Age, gender, ethnicity, weight, height
● Personality Characteristics
○ Humility, courage, loyalty, honesty,
dependability, and impartiality
● THE GREAT PERSON THEORY
○ Great person is equivalent of an
effective leader
(2) Behavioral Approach
● Observable behavior of individuals
● More realistic
● Can be observed and evaluated
● TASK-ORIENTED BEHAVIOR
○ Give work-related instructions
○ Make a lot of follow-ups
○ Emphasize deadlines
● PEOPLE-ORIENTED BEHAVIOR
○ Sensitivity to their feelings
○ Respect for ideas
○ Establishment of mutual trust
(3) Situational and Contingency Approaches
● Ability and flexibility of the leader to
respond to the ever-changing conditions of
the organization and its environment
● Ability to adjust to the different situations
within the organization
● PATH GOAL MODEL
○ Ability of the leader to motivate or
inspire the employees
 ○ Psychological, technical, and other
kinds of support (2) External Environment
● SITUATIONAL LEADERSHIP MODEL ○ Cannot be restrained or influenced
○ Willingness or readiness of the by the organization
employees to be headed by the ○ Beyond the control of the
leader organization as they exist outside its
sphere of influence
ORGANIZATIONAL CULTURE
Culture DEPSTG
● Ways of thinking, ways of acting, and the
material objects that together form a Demographic Age, race, gender, education
Component
people’s way of life
Economic Stock market fluctuation,
Component interest rate, inflation rate, and
Normative Aspect Material Aspect
business cycle stages
Physical things created
Ideas developed Political Existing policies and guidelines
to make life easier
Component that restrict how organizations
behave
Organizational Culture
● Patterns of shared beliefs and assumptions Socio-Cultural Social and cultural factors like
Component norms, trends, attitudes,
on how things are done within the
traditions, beliefs, and
organization
behavior
● Defined how an organization looks like its
external environment Technological Emerging innovations in
● VISIBLE ARTIFACTS Component technology
○ Physical symbols
Global All the issues and other
○ Patterns of behavior
Component developments that abound in
○ Organizational processes the international community
○ Can immediately be identified
● EXPRESSED VALUES AND BELIEFS
○ Not observable
○ Discerned through the actions and
behaviors
○ Products or the apparent expressions
of the values and beliefs
● UNDERLYING ASSUMPTIONS AND
BELIEFS
○ Deeply ingrained
○ Subconsciously guide actions and
decisions

ORGANIZATIONAL ENVIRONMENT
Organizational Environment
(1) Internal Environment
○ Organizational culture, managers and
subordinates, policies and guidelines,
structures and processes, and symbols
and practices
○ Within the influence and control of
the government
○ Can be altered or reshaped