Administrative Structure

Public administration essentially refers to the concept of government and all its
instrumentalities.
According to Felix Nigro and Lloyd Nigro (1989), public administration is a cooperative group in
a public setting; covers all the three branches-executive, legislative, and judicial-and their inter-
relationships; has an important role in the formulation of public policy and is thus part of the
political process; is different in significant ways from private administration; is closely
associated with numerous private groups and individuals in providing services to the
community.

I. Bureaucracy

Bureaucracy refers to a body of government officials who are not elected but form an
administrative policy making group. In old times, bureaucracy was referred to a government
administration which was formed by non-elected officials and run by departments that are
employed by them.
The instrumentality that takes on the operation or implementation of the policies and programs
of the government is popularly known as “bureaucracy”.
It provides the continuity of the government when there are transition problems.
It is bureaucracy that gives the life to any administration in the government through meanings
that they provide to important public policies.

CONCEPT OF BUREAUCRACY

 Achieving the purposes of the government is what the bureaucracy is designed for.
 The word "bureaucracy" is derived from the French word "bureau" which means office
and the Greek word "kratos” which also means power or strength according to Richard
John S.
Baker (as cited in De Guzman, Brillantes, & Pacho, 1988).
 According to Baker, it is the exercise of power by the officials of the government in
accordance with the instructions of those who wield sovereign power in the state.
 According to Raul P. De Guzman, Alex B. Brillantes and Arturo G. Pacho (1988), it is
understood by others as 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. It is also understood 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.
  Max Weber, a German sociologist and economist, conceived bureaucracy as an
organization which is considered an extension of the state
 It is even regarded as the fourth branch of the government that is ranked in the same
level with the executive, legislative, and judiciary branches of the country’s political
system.
 To Weber, "bureaucracy" is the same as the power elite which is based on the three
assets that include expertise, information, and access to secrets as discussed in a
manual published (anonymous) on-line.
 Bureaucracy has all the experts that provide the technical "know how” in running the
government and they are called TECHNOCRATS.

IMPORTANCE OF BUREAUCRACY

 It has the information that is essential to accomplish the objectives of the entire
government instrumentality.
 It has also the access to all sensitive information which the government alone could use
and enjoy.
 If steered on the right decision, the bureaucracy would be a success and may help the
government to accomplish its objectives.

EVOLUTION OF PHILIPPINE BUREAUCRACY

 In the early time, the Philippines created the so-called "barangays” to handle all the
needs of the public from economic trade to protection of the entire community.
 The barangay was headed by a datu or rajah who exercised practically all the powers of
the government. The datu, on the other hand, was assisted by a council of the elders
who were often consulted in matters that required the decision of the datu.
 When the Spaniards came to the country, the old style administration was replaced by
the new colonial master and proceeded to impose a highly centralized government that
controlled everything during their 333 years of stay in the power. During this period, a
civil service was created but focused its attention primarily on the executive, legislative,
judicial, and religious functions according to De Guzman, Brillantes, and Pacho. The civil
service during this period was small and was composed primarily of the following
department: Army, Navy, Justice, Finance, and Directorate General of Civil
Administration.
 When the revolution broke out, the Filipinos maintained its own government and tried
to implement a system that was never implemented by its colonial master. The most
notable achievement of the Filipino revolutionaries during this period was the
 enactment of the Malolos Constitution that serves as the foundation of the existing
government. The constitution defined the powers of the revolutionary officials
specifically the president and created a civil service composed of seven departments like
Foreign Affairs, Interior, Finance, War, Army and Navy, Public Institution, Public
Communication and Works, and Agriculture and Industry and commerce.
 The short-lived government was eventually substituted by the political system which
was established by the Americans who replaces the Spaniards as the next colonial
master. The Americans introduced a highly centralized government but promised the
Filipinos to give their independence as soon as a stable government can be established
in the country. They then put up a civil service which valued the principle that "public
office is a public trust" and that civil servants were made accountable to the public. This
civil service was given spirit by the Philippine Commission which enacted into a policy
the "Establishment of an Efficient and Honest Civil Service in the Philippines". The
Americans created six government departments that include the following: Finance,
Justice, Public Instruction, Interior, Agriculture and natural Resources, and Commerce
and Communications.
 During the Commonwealth period, the capabilities of the Filipinos were tested by the
Americans which allowed the creation of a transitory government that will gave way or
their independence. In this period, a new constitution was drafted and contained a
separate provision on the civil service.
 The 1935 Constitution provided that all institutions of the government during this period
were under the civil service and that entry in some ranks must be done through merit
and fitness. The Commonwealth period also saw the creation of the three additional
departments in the government namely, National Defense, Labuor and Health, and
Public Welfare.
 While in exile, the government of the Philippines under the Japanese regime also
introduced its own system of the civil service which includes an all Filipino-cast. It was
the first time that a group composed basically of all Filipinos occupied most positions in
the government. It also composed of six departments just like the Americans.
 The grant of independence to the Filipino after the Second World War gave them the
opportunity of charting their own direction free from any direct interference from any
colonial master. It was during this period that the government itself as well as the public
complained of the problems in the bureaucracy which ranged from unqualified
personnel, graft and corruption, incompetence, and low prestige. The succeeding
administrations, however, tried to make things brighter with the introduction of several
reforms. Several administrations have called for the restructuring of the Philippine
bureaucracy but all faded in the process as other problems became more apparent.
  When President Ferdinand Marcos assumed the presidency in 1965, he immediately
asked the legislative department to consider a reorganization plan for the government.
It was given spirit by Congress when it approved into law the "Reorganization law" in
1968 and proceeded immediately to crafting a better reorganization plan but was
completed seven years after. President Marcos decides to reorganize the executive
department through Presidential Decree Number 1. After martial law, the Philippine
government continued and sparingly introduced several other reforms in the
government.

CHARACTERISTICS OF BUREAUCRACY

 Bureaucracy is not static but an institution that reflects the changes of the advancing
time.
 Bureaucracy exhibits some characteristics which are not common in other theories of
Organization
 Some of the characteristics of bureaucracy include the following:
 Bureaucratic organization is based upon a well-defined hierarchy
 Bureaucratic organization is divided between vertical and horizontal lines for
division of work and functional specialization
 Functions with a framework of fixed rules
 Specifies the duties and responsibilities of officials
 Employs proper and scientific selection of individuals
 Uses an impersonal approach in the organization

CHARACTERISTICS OF BUREAUCRACY IN THE PHILIPPINES

 Bureaucracy was developed by MAX WEBER in order to make things easier to the public
sector as well as with the private sector and in order to promote the concept of
bureaucracy to both the public and private sector to help them facilitate their respective
performances in delivering services to their claims.
 As the principles of bureaucracy were applied in the public sector, several negative
characteristics were observed by the public even by the academic sectors. These
characteristics according to Onofre D. Corpuz (1957) include the following:
Vulnerability to nepotism
Perpetuation of the spoils system
Apathetic public reaction to bureaucratic misconduct
 Survival of historical experience
Non-special typing of bureaucrats
Lack of independence from politics often called as "politician".
 "Nepotism" according to Jose P. Leveriza (2008) is the act of accepting or giving
preference to the family members in tilling up vacant government position

REGULATING AND CONTROLLING THE BUREAUCRACY

 The Philippine government has maintained for a very long time two support agencies
that continue to regulate its operation. These government agencies have been serving
their purposes and maintained a bureaucracy that is stable even during transitions when
one administration is replaced by another administration. These agencies include the
Civil Service Commission (SC) and the Commission on Audit (COA) both of which are
created and sanctioned by the present constitution.
 Like the previous constitution, the 1987 Constitution retained the independence of
these government agencies in order for them to function efficiently and effectively. The
present constitution believes that through independence these constitutional
commissions will be able to regulate the government bureaucracy without being
influenced by other institutions or individuals in the course or their operations.
 CIVIL SERVICE COMMISSION is considered as the central personnel agency of the
government which is directly in charge of the entre civil service in the county.
 It also includes all of the government owned and controlled corporations
in the country except those which have been recently privatized.
 It is also expected to establish a career service and pursue all other
measures that encourage the effectiveness, efficiency, responsiveness,
and courtesy in the entire civil service system.
 It shall strengthen the merit and rewards system among the government
employees. This is to ensure that the right people in me government are
hired and retained without the need to replace them with the new
employees in the process.

 COMISSION ON AUDIT has been created in order to ensure that the resources of the
government are not wasted and are dispensed entirely for the purpose to which the
resources are intended.
 Established to be an independent body to see to it that the revenues and
expenditures of the government are accounted directly and disposed in
accordance with the mandated purpose on these resources.
  It shall have the power, authority and duty to examine, audit and settle
all accounts of the government.
 It shall also have exclusive authority to define the scope of its audit and
examination, establish the techniques and methods, and promulgate
accounting and auditing rules and regulations.
 GOVERNANCE COMMISSION ON GOCCs (GCG), it is primary functions is to audit at the
same time the "in and out” of the revenues of all government owned and controlled
corporations.
o The Commission is imperative in order for the government to monitor the
different government corporations.
o It serves to strengthen the accountability of all its officials in dispensing their
respective functions.

ECOLOGY OF BUREAUCRACY IN THE PHILIPPINES

 The ecology where bureaucracy operates is indeed very significant and this is a common
knowledge among those who are working in the government and even to academicians.
Its environment is significant in the sense that the practice of “politicking" could hardly
be divorced from the processes that take place in almost all government agencies. The
process of "politization" is simply unavoidable and is common "carte de jour" in the
working of any government bureaucracy. However, "politization" in some instances is
not at all bad as the process may sometimes result into something that is positive and
useful on the part of the government.
 According to James Anderson (2011) there are several institutions that compete in
trying to influence the decision of the people in the bureaucracy. These institutions
include the office of the chief executive, congress, judiciary, other government agencies,
and the public as well. Perhaps the most influential among these institutions is the office
of the chief executive from which all agency heads over their positions.
Any instruction that would come from the chief executive is treated with
utmost regard and could not be ignored unless the head of agency is
ready to suffer the consequences.
 The CONGRESS is another institution that influences the decision and practices of any
government agency.
It is composed of two houses: The SENATE and the HOUSE OF
REPRESENTATIVES
Another instance by which administrative agencies could be influenced
by congress is through the confirmation of appointments of their
respective executives.
  The JUDICIAL department is also capable in influencing the decisions of the different
agencies of the government. Its influence is normally felt during the implementation of
a policy or program of any government agency when a case is brought before the
Supreme Court to determine its constitutionality. The primary consideration in this case
of the judicial branch is the legality of the policy or if the agency concerned exceeded in
its authority to implement such policy.
 Aside from judiciary, other administrative agencies can also influence the decision of
another agency in the government. When one agency decides to implement a program,
it normally involves the concern of other government agencies. In this case, it is
necessary that one particular agency should coordinate with the others because of the
necessity of implementing a program minus the problematic situations
 Finally, there is the PUBLIC which serves as the final arbiter of everything that a
particular government agency does. The public is always expected to react to policies
that are unpopular to them and would not take it simply without the need of asking the
government especially the chief executive for an explanation.

THE EVOLVING FIELD OF THE PHILIPPINE BUREUACRACY

 Onofre Corpuz (1957) enumerated a number of dysfunctions that are in the system of
the country's bureaucracy. These includes the following:
Vulnerability to nepotism
Perpetuation of the spoils system
Apathetic public reaction to bureaucratic misconduct
Survival of historical experience
Non-special typing of bureaucrats
Lack of independence from politics
 The inability of the "Theory of Bureaucracy” led the public sector to overhaul its system
with the end view of looking at the practices of the private sector which at that point
was experiencing some developments. The introduction of the "New Public
Management" as well as the perspective of "Good Governance” prove to be beneficial
on the part of the public sector as new practices emerge and guide eventually the
implementation of reforms in the government bureaucracy.
CONCEPT OF NEW PUBLIC MANAGEMENT

Has influenced the country's bureaucracy in many ways.

According to Mirshariff Tillah (2005), he states that the "New Public
Management" advocated the idea that the private sector should play more in
the delivery and funding of government services.
Professor Rhod Rhodes (as cited in Tillah, page 11, 2005), the "New Public
Management" approach can be viewed as basically the occurrence of the stages
of "managerialism" and "new institutional economics" that swept most of the
developed countries in the wore. The concept of managerialism is me
introduction of the private sector methods in the public sector, while "new
institutional economics" refers to the application of incentive structure in the
delivery of public services.
According to Osborne and Gaeblar, the concept of the "New Public
Management" involves the following elements: preference for market
mechanisms to bureaucratic mechanism; instead of providing services, catalyzing
all sectors to solve problems, empowerment to citizens, promotion of
competition, and redefining clients as customers; decentralization; and creation
of performance measures focusing on outcomes and missions, rather than rules
and regulations.

CONCEPT OF GOOD GOVERNANCE

The notion of "Good Governance" as an approach is 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 (2005) enumerated indicators of Good Governance which was later on
developed by World Bank and became the standards in evaluating the compliance of
several countries with good governance practices. These indicators according to the
World Bank include the following: government effectiveness, voice and accountability,
political stability and absence of violence. Regulatory quality, control of corruption, and
rule of law.
II. Philippine Administrative Structure
The administrative structure of the Philippines includes a national government, local
government units (LGUs), and autonomous regions. Please note that there may have been
changes or developments since then. Here is an overview of the Philippine administrative
structure:
National Government:
Executive Branch: Headed by the President, who serves as both the head of state and head of
government. The President is assisted by the Cabinet, composed of various secretaries heading
different departments.
President: The head of state and government, elected for a single six-year term.
Vice President: Elected separately from the President, serves as the second-highest
official in the executive branch.
Cabinet: Appointed by the President, the Cabinet is composed of various secretaries
heading different executive departments.
Legislative Branch: Consists of the Congress of the Philippines, a bicameral legislature
consisting of the Senate and the House of Representatives.
Congress of the Philippines: A bicameral legislature consisting of two chambers:
Senate: Composed of 24 senators elected at-large for six-year terms.
House of Representatives: Composed of representatives, the number of which is
apportioned among the provinces, cities, and the Metropolitan Manila area based on
population.
Judicial Branch: Comprises the Supreme Court and lower courts.
Supreme Court: The highest court in the land, responsible for interpreting the
constitution and deciding on constitutional issues.
Lower Courts: These include the Court of Appeals, Regional Trial Courts, and Municipal
and Metropolitan Trial Courts, among others.
Local Government Units (LGUs):
Provinces: The country is divided into provinces, each headed by a governor. Provinces are
further divided into municipalities and cities.
Municipalities: The basic political unit headed by a mayor and a municipal council.
Cities: Independent of provinces and may either be component cities (under provincial
jurisdiction) or highly urbanized cities (independent of provincial control). Cities are headed by
a mayor and a city council.
Barangays: The smallest administrative division, similar to a village or neighborhood, headed by
a barangay captain and a barangay council.
Autonomous Regions:
There were two autonomous regions:
Autonomous Region in Muslim Mindanao (ARMM): However, please note that the
Bangsamoro Autonomous Region in Muslim Mindanao (BARMM) replaced ARMM in 2019. It
was created as part of the peace process with the Moro Islamic Liberation Front (MILF).
Cordillera Administrative Region (CAR): While not fully autonomous, CAR has a measure of
self-governance.
Special Administrative Regions:
There are no Special Administrative Regions (SARs) in the Philippines. The term "special" is
more commonly associated with the administrative regions in China.
Constitutional Commissions:
Commission on Elections (COMELEC): Responsible for overseeing elections.
Civil Service Commission (CSC): Manages and supervises the civil service.
Commission on Audit (COA): Examines and audits government accounts and expenditures.
III. Departments of the Government
Here are some key government departments in the Philippines and their secretaries as of the
time. However, please note that there may have been changes since then. Here are some of the
major departments:
Department of Agriculture (DA):
Secretary: Francisco Tiu Laurel Jr., who assumed office on November 3, 2023

Department of Education (DepEd):

Secretary: The current secretary is Sara Duterte, who assumed office on June 30, 2022.

Department of Energy (DOE):

Secretary: Raphael P. M. Lotilla

Department of Environment and Natural Resources (DENR):

Secretary: Maria Antonia Yulo-Loyzaga, since July 12, 2022

Department of Finance (DOF):

Secretary: Secretary Ralph Gonzalez Recto

Department of Foreign Affairs (DFA):

Secretary: Ambassador Enrique A. Manalo

Department of Health (DOH):

Secretary: TEODORO HERBOSA

Department of the Interior and Local Government (DILG):

Secretary: Benjamin Abalos Jr., n January 24, 2024

Department of Justice (DOJ):

Secretary: Jesus Crispin Remulla on May 23, 2022

Department of Labor and Employment (DOLE):

Secretary: Bienvenido Estudillo Laguesma

Department of National Defense (DND):

Secretary: Gilberto C. Teodoro, Jr., on January 22, 2024

Department of Public Works and Highways (DPWH):

Secretary: Manuel Manligas Bonoan since June 30, 2022

Department of Science and Technology (DOST):

Secretary: Renato Solidum Jr., who holds office since July 22, 2022

Department of Social Welfare and Development (DSWD):

Secretary: Rex Gatchalian, who assumed office on January 31, 2023

Department of Tourism (DOT):

Secretary: Maria Esperanza Christina Garcia Frasco since June 30, 2022

Department of Trade and Industry (DTI):

Secretary: Alfredo E. Pascual, who assumed office on June 30, 2022

Department of Transportation (DOTr):

Secretary: Jaime Bautista, who assumed office on June 30, 2022

Department of Information and Communication Technology:

Secretary: Ivan John E. Uy