n-of-Public-Administration-History-and-Context-in-the-PH.pdf

CCTO.

1. The Evolution Of Public
Administration

2. Backgroundandintroduction
PublicAdministrationhasactuallypassedthroughthreedominant modes:
•alonger,pre-eminentoneofPublicAdministration,fromtheearly 1900stothe
1980s;
•asecondmode,oftheNewPublicManagement,fromthe1980s to the2000s;
•and,recentlyanemergentthirdone,thePublicGovernance.

3. NewPublic
Management
NewPublic
Governance
1890 early1980s 2000
ThreemanagementmodesofPublicServiceOrganizations
OldPublic
Administration

4. Phases in the Evolution of Public Administration
Phase Indicative Period
A. Traditional/Classical Public Administration 1800s to 1950s
B. Modern Public Administration
1.Development Administration (1950s-1960s)
2.New Public Administration (1970s)
3.New Public Management (1980s-1990s)
4.Reinventing Government (1990s)
5.PA as Governance (1990s to present)
1950 –present

5. Traditional/Classical Public
Administration
1800s to 1950s

6. Who’sbehindtheOldPublicAdministration

7. 1800s to 1950s
•Wilsonsuggestedthedistinctionbetweenpoliticsandadministrationi.e.
administrationshouldbepolitics-freeandthat“thefieldofadministrationis
thefieldofbusiness;”(Wilson1953:71)thus,establishingwhatbecame
knownasthe“politics-administration”dichotomy.
•FrederickTaylor,dubbedasthe“FatherofScientificManagement,”isbest
knownforhis“onebestwayapproach”inaccomplishingtask.Classical
organizationtheoryevolvedfromthisnotion.
•MaxWeber(1946),aGermansociologistwhoisknownasthe“Fatherof
ModernSociology,”madealuciddescriptiveanalysisofbureaucratic
organizations.Hepresentedsomemajorvariablesorfeaturesof
bureaucracysuchas:hierarchy,divisionoflabor,formallywrittenrulesand
procedures,impersonalityandneutrality;hence,providingareference
pointinevaluatingboththegoodandbadeffectsofbureaucratic
structures.(Weber1946ascitedinShafritzandHyde1997)

8. KeyelementsofOldPublicAdministration
Thekeyelementsof
OldPublic
Administration
(Osborne,2006:378)
•thedominanceofthe“ruleoflaw”;
•afocusonadministeringsetrulesandguidelines;
•acentralroleforthebureaucracyinpolicymakingandimplementation;
•the“politics–administration”splitwithinpublicorganizations;
•acommitmenttoincrementalbudgeting;
•thehegemonyoftheprofessionalintheservicedeliverysystem.
•hierarchyandrules;
Principlesof •permanenceandstability;
OldPublicAdministration•aninstitutionalizedcivilservice;
(Pollittetal.,2007a:3)•internalregulation;
•equality.

9. Traditional / Classical Public Administration
•Allsocietiesaredevotedtoadvancingthegeneral
welfareorthepublicinterest.
•Theideathat“publicadministrationshouldnotbe
consideredadministrationofthepublicbutadministration
forthepublic”
•Inotherwords,theideaofclient-orientedpublic
administrationhasitsrootsinancientpublic
administration.

10. TherootsofPhilippinePublicAdministrationdwellsonAmerican
theoriesandprincipleswhichadmittedlyinfluencedthedirectionand
developmentoftheformalstudyofthefieldofpublicadministration
inthePhilippines,bothatthelevelsoftheoryandpractice.Itwillbe
recalledthatpublicadministrationasacademicfieldofstudy
formallybegunwiththeestablishmentbytheAmericansofthe
InstituteofPublicAdministration(IPA)intheUniversityofthe
Philippines(UP)in1952.Hence,thecloseaffinityofPhilippinePA
theorytoAmericanPAtheoryandpracticecannotbedivorced.

11. •TheAmericansgainedcontrolofthePhilippinesafterabriefFilipino
resistancetoAmericanrule,whicheventuallypavedthewayforthe
UnitedStatestoinstituteacolonialgovernmentin1900.Duringthe
Americancolonialregime,thecountryestablishedasystemof
governmentandapoliticalstructurethatfollowedtheAmerican
model.ManyoftheinstitutionsinthePhilippinestoday,suchasthe
bureaucracy,theeducationalsystem,andvariousaspectsof
cultureandpractices,reflectAmericaninfluence.
•In1935,thePhilippineCommonwealth wasestablishedunderthe
supervisionoftheAmericanstopreparetheislandsfor
independence.Aconstitutionwasthenframedandratified,which
establishedapresidentialsystemunderaunitarygovernmentwith
threeco-equalbranchesofgovernment,theexecutive,a
bicamerallegislature,andthejudiciary.Thecommonwealth
government,however,wentintoexilewhenJapaninvadedthe
PhilippinesduringWorldWarII.

12. Other significant contributors of Old PA
•LeonardD.White:hisworkavoidedthepotentialpitfallsofthe
politics-administrationdichotomybutratherconcentratedon
emphasizingthemanagerialphaseofadministration
•HenryFayol:hegives14principlesforbetteroutcomesfrom
theadministration
•GullickandUrwick’sPOSDCORB
•Simon(1946)inhisbook,“AdministrativeBehavior,”createda
distinctionbetweentheoreticalandpracticalscience.He
introducedmorecommon principlesintheliteratureof
administrationwhichhighlightedadministrativeefficiencyand
specializationwhenhewrotethearticle,“TheProverbsof
Administration.”(Simon1946ascitedinShafffritzandHyde
1997;Stillman1991)

13. Other significant contributors of Old PA
•Appleby(1945):“publicadministrationwasnotsomethingapart
frompolitics”butratheratthe“centerofpoliticallife.”(Stillman
1991:123)
•DwightWaldo(1948)triedtoestablishthedirectionandthrustof
PublicAdministrationasafieldofstudyinhisbook,“The
AdministrativeState,”whichhitthe“gospelofefficiency”that
dominatedtheadministrativethinkingpriortoWorldWarII.
•Sayre(1948)attackedpublicpersonneladministrationas“the
triumphoverpurpose.”(ShafritzandHyde1997:74)
•Selznick(1949)introducedtheso-called“cooptativemechanism”
wherehedefined“cooptation”as“theprocessofabsorbingnew
elementsintotheleadershiporpolicydeterminingstructureofan
organizationasameansofavertingthreatstoitsstabilityor
existence.”(ShafritzandHyde1997:147).

14. Other significant contributors of Old PA
•WilliamWilloughby(1918)stressedtheroleofthetrilogycoveringallthree
branchesofgovernmentbuthewasmoreknownforhisbudgetary
reforms---budgetasaninstrumentfordemocracy,asaninstrumentfor
correlatinglegislativeandexecutiveaction,andasaninstrumentfor
securingadministrativeefficiencyandeconomy.
•MaryParkerFollet(1926)alsomadesomesignificantcontributiontothe
discourseofPublicAdministrationasoneoftheproponentsof
participatorymanagement andthe“lawofsituation”whichcanbe
attributedtotheconceptofcontingencymanagement.Sheillustrated
theadvantagesofparticipatorymanagement inherarticle,“TheGiving
ofOrders.“
•Inthe1920sandearly1930s,EltonMayoconductedtheHawthorne
experimentsonthetheoryofindividualswithinanorganizationwhich
propelledthehumanrelationsschoolofmanagement thought.

15. Other significant contributors of Old PA
•ChesterBarnard(1938)presentedamorecomprehensivetheoryof
organizationalbehaviorwhenhewrotethefunctionsoftheexecutive.He
arguedthatfortheexecutivetobecomemoreeffective,heshould
maintainanequilibriumbetweentheneedsoftheemployeesandthe
organization.
•Maslow(1943),ontheotherhand,focusedonthehierarchicalneedsof
theindividual.His“theoryofhumanmotivation,”statesthatthehuman
beinghasfivesetsofneeds:physiological,safety,loveoraffiliation,
esteemandultimately,andself-actualization.Hisconceptswerelater
exploredanddevelopedintomorecomprehensivetheoriesandprinciples
asadvocatedbyotherresearchesinorganizationalbehaviorand
management, suchas,Herzberg’s“motivationhygienetheory,”Mc
Gregor’s“TheoryXandY,”11Argyris’“personalityversusorganizationand
Likert’sSystems1to4,amongothers.(ShafritzandHyde1997)

16. Modern Public Administration
1950 –present

17. •Thissuggeststheindicativeperiodofmodernpublicadministration
inthe50s.
•Thedisciplineofpublicadministrationhasbeencharacterizedas
onewithacontinuing“identifycrisis.”Toacertainextent,itwasthat
“identitycrisis”thatservedasthemethatledtotheemergenceof
theNewPublicAdministrationmovementinthe70s.
•Rutgers(1998)arguedin“Paradigmlost:CrisisasIdentifyofthe
StudyofPublicAdministration,”thatpublicadministrationlackedan
“epistemologicalidentity.”
•InthePhilippines,Reyes(2003)revisitedtheso-called“identitycrisis”
ofpublicadministrationinitiallyraisedbyvariousscholarsofthe
disciplineinhisvariouswritings.Hecontendedthatthecrisis
revolvedaroundtheimperativetodefineapublicadministration
rootedtothedevelopmentaspirationsofthePhilippines.The
identitycrisis,however,continuesuptotodayinthePhilippines.

18. 1. Development Administration (1950s to
1960s)
•DevelopmentAdministration(DA)asafieldofstudyemergedin
1950sand1960swiththethirdworldcountriesasthefocalpoint.
•NefandDwivedi(1981),laterpopularizedbyRiggsandWeidner,
coinedtheterm“development administration”toreferto
developingcountrieswhicharelargelyfoundinAsia,LatinAmerica,
andAfrica.Thesedevelopingcountriesendeavoredtomake
concertedeffortsinordertoberecognizedas“emergingnations”
andtoresurrectthemselvesafterWorldWarII.
•Inthecontextof“emergingnation,”Landau(1970)describedDAas
theengineeringofsocialchange.Likewise,accordingtoIlchman
(1970),thesecountrieswere“concernedwithincreasingthe
capacityofthestatetoproducegoodsandservicestomeetand
inducechangingdemands.”(Ilchman1970:136)

19. •Gant(1979)ontheotherhand,definedDAasnotmerelyaddressingstate
functionssuchaspublicservicedeliveryandenforcementoflawsbutthe
inducementandmanagement ofchangetopursuedevelopment
aspirations.Thesedevelopingcountrieswereinurgentneedtoimplement
fundamentalreformsintheirpolitico-administrativemachinery.
•Khator,however,arguedthatDAwasbuiltuponseveralcritical
assumptionsthat:(1)developmentneedsarethemostimportantneedsof
developingcountries,(2)thedevelopmentneedsofdevelopingand
developedcountriesareinherentlydifferent,(3)developmentcanbe
administered,(4)developmentalknow-howsaretransferable;and(5)the
political,social,andculturalcontextofdevelopmentcanbeeasily
altered.(Khator1998:1778)
•Likewise,FredRiggs,inhis“FrontiersofDevelopment,”identifiedtwofociin
developmentadministration:developmentofadministrationandthe
administrationofdevelopment.Mostdevelopmentadministrationscholars
focusedmoreonthelatteranditsubsequentlybecamesynonymousto
theadministrationofdevelopmentinthirdworldcountries.(Khator1998)

20. •DAmaybeconsideredas“management ofinnovation”becauseitwas
aimedathelpingcountriesthatareundergoingreconstructionandsocial
transformation.
•InthePhilippines,Theterm“developmentadministration”wasusedto
suggestthatitmaybeanappropriateframeworktoexaminetheState’s
experienceasittriestorebuilditsinstitutionswithinademocratic
framework,asitstrugglestoneweconomic,politicalandsocial
challenges,andasitadaptstothetrendsanddemandsofglobalization.
•Additionally,DAprincipleshavebeenamongthemajorthemesthatran
throughthevariouslecturesandwritingsofRaulDeGuzman,who
togetherwithODCorpuz(1986)initiallyaddressedthequestion:“Istherea
PhilippinePa?”Sincetheideawastosteerdevelopingcountriesfor
economicdevelopmentandsocialprogress,thetermDAbecameclosely
associatedtoforeignaidandwesternmodelsofdevelopment.

21. •TheseWesterncountriesprovidegrantsandaidstodevelopingcountries
fornation-building,economicdevelopment,institutionalstrengthening,
andpeopleparticipationindevelopment.Astoadministrativereform,
whichisoneofthecorevaluesofDA,DeGuzman(1986)describedand
analyzedthestructuralandbehavioralcharacteristicsofthePhilippine
publicbureaucracy andarguedthatthe“implementationof
administrativereformshouldhavetwomajordimensions:reformingthe
structuresofthebureaucracyandreformingthebehaviorofthoseinthe
bureaucracy.”(DeGuzman1986ascitedinBrillantes1994:8)
•Developmentadministrationhasalwaysbeenoneofthecentralfeatures
ofthevariouslong-andmedium-termPhilippineDevelopmentPlanssince
theseventies.Theparadigmforbureaucraticreformcontinuestoevolvein
variousintellectualandpracticaldebatesbutgovernmentcontinuesits
workamidstallthese.Untilrecently,allPhilippinedevelopmentplanssince
theseventieshadaspecificchapterdevotedsolelytodevelopment
administration.

22. 2. New Public Administration (late 1960s to
1970s)
•Theterm“NewPublicAdministration”orNewPAmayhaveemergedfrom
theMinnowbrook Conferencein1968inSyracuseUniversity.The
conferencewasthebrainchildandinspirationofDwightWaldowho
broughttogetheryoungpublicadministratorsandscholarstodiscuss
importantissuesandvaryingperspectivesonpublicadministration.The
conferencecreatedahullabaloo.Oneofitscontroversiesisthatithad
rejectedtheclassicaltheoriesofpublicadministrationandinsteadoffered
newprinciples.
•Forinstance,Fredericksoninhisessay,“TowardsaNewPublic
Administration,”addssocialequitytotheclassicdefinitionofpublic
administration.Conventionalorclassicpublicadministrationsoughttoonly
answerinquiriesonefficiencyandeffectivenesslike:howcanthe
governmentofferbetterserviceswithavailableresources(efficiency)or
howcanwemaintainourlevelofserviceswhilespendinglessmoney
(economy)?InintroducingtheprinciplesofNewPA,headdsthequestion:
“Doesthisserviceenhancesocialequity?”(Frederickson1971)

23. •Moreover,theMinnowbrook confereesalsoquestionedthe
relevanceoftraditionalpublicadministrationtoexistingdeprivation
withaneraoffast-pacedtechnologicaladvancement inthe
backdrop.Fredericksonarguedthat,disparitiesexistedbecause
publicadministrationfocusedlessonsocialpurposesorvaluesof
governmentpoliciesandprogramsandmoreontheeconomyand
efficiencyofexecution.Thevalue-freeandneutralstanceof
traditionalPAhasalienatedthelessprivilegedanddeprivedgroups
inthesociety.
•NewPA’sproponents,likewise,advocatedthatpublicadministrator
shouldnotbeneutral;theyshouldbecommittedtobothgood
management andsocialequityasvaluestobeachieved.NewPA
thencalledforclient-orientedadministration,non-bureaucratic
structures,participatory decision-making, decentralized
administrationandadvocate-administrators.(Frederickson1971;
NigroandNigro1989)
•Toconcludethisphase,NewPAis“change”andthechallengeis
forthepublicadministratorsistheircapacitytoacceptchange.

24. Is New PA relevant?
•ThesamequestionwasaskedbyPilar(1993)inhisarticle
“RelevanceofNewPAinPhilippinePublicAdministration.He
arguedthatNewPAisrelevantwhilethereisnoindigenous
modelofpublicadministration.
•“TherelevanceofNewPAmayberegardedfromintermsof
theircompatibilitywiththecontextortheenvironment,aswell
astheconvergencebetweenthecontentandintentofnew
PAwiththegoals,purposes,andaspirationsofthecountry.”
(Pilar1993:145)
•TheprincipleofNewPAiscompatiblewiththeenvironmentof
thePhilippinePA,althoughitwasconceivedduringthetime
thattheUSwasinchaoticandunpredictableenvironment
amidstprosperity.

25. Is New PA relevant?
•SuchsituationisdifferentinthePhilippinesconsideringthatnot
onlyitgrappledwithadvancementbutitstruggledtopullitself
outofpovertywhichisamajorconcernofthegovernmentup
tothisdate.
•NewPAcreatedtheneedtostimulatechange:meetingthe
needsofthesocietythroughthegovernment’sdevelopment
programsandprojects,andaddressingsocialequityand
justice.Itmustbeemphasizedthough,thatthecorequestions
raisedbyNewPAarealsoembedded inoursecondorder
question,“forwhomisPA?”Itisindeedcriticaltodefinethe
ultimatetargetsandpartnersofpublicadministration
structures,institutionsandprocesses.Inotherwords,whoisthe
“public”inpublicadministration?

26. 3. New Public Management (1980s-1990s)
•Inthe1980sandearly90s,asiftherewasacollectiveassaultonthe
organizationquestioningconventionalandtraditionalwaysofdoingthings
–bothintheprivateandpublicsectors-variousstrategiesandmodalities
underscoringtheimperativeforfundamentalinternalandexternalreform
intheorganizationemerged.Theyrangedfrombeingmore“client”or
“customer”oriented,tothedecentralizationofauthoritytobeingmore
“businessoriented”especiallyforthoseingovernment.
•Thenewpublicmanagement (NPM)movement wasapparently
practicedbytheEuropeancountriesinthelate1907sand1980sbutwas
essentiallylaunchedseveralluminariessuchasChristopherHood(1991),
ChristopherPollitt(1990),andMichaelBarzeley(1992),amongothersin
early90s.Similarmovements suchasreinventinggovernmentand
reengineeringalsoemergedaroundthesametime.Thissectionintroduces
NPM,reinventinggovernmentandreengineeringgovernment.Whendid
theseideasemerge?Whatweretheirkeyfeatures?Andwerethesereally
moreofthesame?

27. •TheNewPublicManagement (NPM)movementhasstartedin
thelate1970sinUKundertheThatchergovernment;however
asidefromEngland,NPMhasalsolongbeenpracticedbythe
othermembersoftheOrganizationforEconomicCooperation
andDevelopment(OECD)mostlyAnglo-Saxoncountrieslike
NewZealand,Australia,Germany,theNetherlands,and
Canadainthe1980s.
•TheideaofNPMbecamemorepopularandhasstimulated
academicandpoliticalinterestsworldwidewhenChristopher
Hoodcoinedtheterminhis1991articleentitled,“APublic
Management forallSeasons.”(Hood1991)

28. DriversofNewPublicManagement
Contextualdrivingforces Theoreticaldrivingforces
•Fiscalcrisisfacedbygovernments
•Plethoraofpublicinstitutionsandagencies
•Inefficiencies
•Nonaccountablesystem
•Innovationintechnologyand
information
•Globalizationandmarketcompetition
•Demandforqualityinpublic
service delivery
•Neo-liberalview(VonHayek,
•Publicchoicetheory
•Transactioncoststheory
•Principal-agenttheory
•Thatcherism

29. ElementsofNewPublicManagement
•Private-sectormanagementpractices
•Hands-onmanagement
•Arm’slengthorganizations
•Policyimplementationisorganizationallydistancedfromthepolicymakers(as
opposedtothe‘inter-personal’distancingofthepolicy–administrationsplit
withinPA)
•Focusontheentrepreneurialroleofpolitics
•Inputsandoutputcontrol
•Performancemanagementandevaluation
•Serviceunit-basedcostaccounting
•Theuseofmarkets,competitionandcontractsforresourceallocationandservice
deliverywithinpublicservices

30. 2000
ConceptualizingNewPublicManagement
Arm’slength
organizations
Management
stylesand
techniques
frombusiness
sector
Efficiency
Effectiveness
Productivity
Accountability
early1980s

31. •ThebestexampleoftheNPMpracticecanbeseeninNew
Zealand’sadministrativereforms.Theirgovernmentprivatized
substantialpublicfunctions,redevelopedtheirpersonnel
systeminordertobemoreperformance-oriented,instituted
newprocessesofproductivitymeasures,andreengineered
departmentalsystemstoreflectgovernment’scommitment.
(Boston1996;ascitedinDenhardt2004:136-137)
•IntheUS,duringtheadministrationofUSPresidentBillClinton
andVicePresidentAlGore,thisconceptwasreflectedintheir
“NationalPerformanceReview”whichhasurgedthefederal
governmenttoimproveitsperformance.Thishasalsoledthe
foundationofthepraxisofreengineeringgovernmentledby
theClinton-Goreadministration.Parenthetically,NPMwas
justifiedbyLynn(1996)inhisarticle,“PublicManagement as
Art,Science,andProfession.”

32. •Moreover,NPMaccordingtoPollittisashiftintoa
“managerialist”movement.Hethenidentifiedfivecorebeliefs
ofmanagerialism:(1)themainroutetosocialprogressliesin
theachievementofcontinuingincreasesineconomically
definedproductivity;(2)suchproductivityincreasewillmainly
comefromtheapplicationofevermoresophisticated
technologies;(3)theapplicationofthesetechnologiescan
onlybeachievedwithalaborforcedisciplinedinaccordance
withtheproductivityideal;(4)management isaseparateand
distinctorganizationalfunctionandonethatplaysthecrucial
roleinplanning,implementingandmeasuringthenecessary
improvementsinproductivity;and(5)toperformthiscrucial
role,managersmustbegrantedreasonable“roomto
maneuver”(i.e.righttomanage”).(Pollitt,1990:2-3ascitedin
Denhardt2000:148)

33. •Theideasof“newpublicmanagement” and“reinventing
government”wereessentiallybornoutofthecontinuing
searchforsolutionstoeconomicproblemsin1970sandto
produceagovernmentthat“worksbetterbutcostsless.”
(Denhart2004:136)Theideaof“reinventinggovernment”
wasadvancedbyOsborneandGaeblerin1992.Their
conceptofNPMwassparkedbytheuseofbusiness
modelprescriptionsforgovernmenti.e.usingprivate
sectorinnovation,resources,andorganizationalideasto
improvethepublicsector.ReinventingGovernment
provided tenprinciplesthroughwhich public
entrepreneursmightbringaboutmassivegovernmental
reformprinciplesthathasremainedatthecoreofthenew
publicmanagement.

34. Thesearethefollowing:
1.Catalyticgovernment:steeringratherthanrowing
2.Community-ownedgovernment:empoweringratherthanserving
3.Competitivegovernment:injectingcompetitionintoservicedelivery
4.Mission-drivengovernment:transformingrule-drivenorganizations
5.Results-orientedgovernment:fundingoutcomes,notinputs
6.Customer-drivengovernment:meetingtheneedsofthecustomer
nottheirbureaucracy
7.Enterprisinggovernmentratherthanspending
8.Anticipatorygovernment:preventionratherthancure
9.Decentralizedgovernment:fromhierarchytoparticipationand
teamwork
10.Market-orientedgovernment:leveragingchangethroughthe
market(OsborneandGaebler1992:35-282)

35. •Amongthecriticismsofthismodel,however,wasitsemphasis
onpeopleas"customers"or“clients”ratherthan"citizens"and
thatcustomerswereplacedas“end-product”usersof
governmentratherthanas“means”ofthepolicymaking
process.
•DenhardtandDenhardt(2003)likewiseofferasynthesisofthe
ideasthatareopposedtoNPMpresentedbyOsborneand
Gaebler.Theirmodelforgovernanceexpandsthetraditional
roleofthepublicadministratorasalonearbiterofpublic
interestrather,“thepublicadministratorisseenasakeyactor
withinthelargersystemofgovernance.”(Denhardtand
Denhardt2003:81)
•FollowingtheReinventingGovernment,theydividedtheir
argumentintosevenprinciples,namely,(1)servecitizens,not
customers(2)seekthepublicinterest,(3)valuecitizenshipover
entrepreneurship,(4)thinkstrategically,actdemocratically,
(5)recognizethataccountabilityisnotsimple,(6)serverather
thansteer,and(6)valuepeople,notjustproductivity.

36. MainlimitationofNewPublicManagement
•Policyfragmentation
•Increasedthedistancebetweenexecutiveandpoliticians
•Outdatedprivatesectormanagementtechniques
•Intragovernmentalfocus
•Inputandoutputmeasurement
•Compression of democratic values in apluralist andplural
world

37. MainlimitationsofNewPublicManagement
PublicGovernance
“differenttypesofvalues,”“differenttypesofpolicy-makingprocess,”and
“different types of organizationand stakeholder”(Bovaird,2005, p. 218)
Shiftofmode
inPublicAdministration

38. 4. Reinventing Government (1990s)
•Anothersimilarmovementwas“reengineeringorganizations.”
ThistermwascoinedbyMichaelHammer(1990)inanarticle
publishedbytheHarvardBusinessReview.
•Reengineeringoffersanapproachforimprovingperformance,
effectiveness,andefficiencyoforganizationsregardlessofthe
sectorinwhichtheyoperate.
•AccordingtoHammerandChampy(1993),“reengineeringis
thefundamentalrethinkingandradicalredesignofbusiness
processestoachievedramaticimprovementsincritical
contemporarymeasuresofperformance,suchascost,quality,
service,andspeed.”(HammerandChampy1993ascitedin
Halachmi1995:330).

39. Thetenetsofreengineeringincludethefollowing:
•Searchingforradicalimprovementinbusinessprocessesenabledby
exploitingthepowersofinformationtechnology.
•Breakingawayfromtheantiquatedwaysandprocessesofbusiness
operationsandstartingwithacleanslate.
•Viewing(andreviewing)thefundamentalbusinessprocessesfromcross-
functionalperspectivetoensurethateachstepintheprocessaddsvalue.
•Questioningwhethertheprocessisnecessaryandwhatitisintendedto
achieve,giventheoverallmissionoftheorganization.
•Systematicsearchingforradicalchangesforthepurposeofeffectingmajor
improvementsorbreakthroughsinbusinessprocesseswhenanincremental
approachwillnotworkanymore.
•Reducing,ifnoteliminating,paperdocumentationthatenterstheprocessat
differentstages,withanattempttocapturethedataonce,atthesource.
•Focusingonanddevelopingaroundprocessesandoutcomes,nottasksor
organizationalfunctions.
•Focusingonthecustomerorclient,inaresults-oriented&team-based
approach.(Halachmi1995:331)

40. Re-engineeringortheso-calledbusinessprocess
reengineering(BPR)wasessentiallyaninnovationthat
soughttorefurbishtheoperationofanorganization’s
operation,management systemandstructure,toimprove
itsefficiency,effectiveness,andcompetitiveabilityand
ultimatelyimproveservicedelivery.Re-engineeringseems
tobeaneffectivewaytoupgradetheservicesofour
governmentalagencies,however,itcontinuestohurdle
obstaclesandchallengesinapplyingtheformulasuchas
fiscalconstraintsandthetraditionalthinkingofpolitical
leaders.

41. 5. PA as Governance (1990s into the 2000)
•Themanyfaileddevelopmentinterventionsinthe50sintothe90sspurredthe
introductionofotherdevelopmentreforms.The“governance”paradigmwas
introducedandadvocatedbytheUnitedNations(UN),WorldBank(WB),Asian
Development Bank(ADB)andotherinternationalinstitutions.Theword
“governance”suddenly“hasbecomesomethingofamantrainrecentyears,
utteredbydonors,reformersandpunditsalike.”(Frechette2000:25)
•Governanceentailsalargerscopeandhasawidermeaning.Thoughtheterm
“governance”hasbeenusedtorefermostlyto“government,”whencorrectly
used,“governance” reallygoesbeyondgovernment.Itinvolvesthe
institutionalizationofasystemthroughwhichcitizens,institutions,organizations,
andgroupsinasocietyarticulatetheirinterests,exercisetheirrights,andmediate
theirdifferencesinpursuitofthecollectivegood.(ADB1995ascitedinADB2005:
1)
•UNDPdescribesitas“theexerciseofpolitical,economicandadministrative
authoritytomanageanation’saffairs.Itembracesallofthemethods-goodand
bad–thatsocietiesusetodistributepowerandmanagepublicresourcesand
problems.”(UNDP1997:9)

42. 20202000
PublicGovernance
SocietalChallenges
wickedissues
sustainabledevelopment
Outcomes
PublicSector
PrivateSector
Society
Adaptation

43. Cariño(2000),inherreflectionsontheterm“governance,”
identifiedactorsandfactorsthatpushedforgovernance.She
acknowledgesthatgovernanceisnotthesoleresponsibilityof
thegovernmentpersebuttheroleofthemarketandcivil
societyareofequalimportancetooandshouldalsobe
recognized.Shethenidentifiedthefactorsorprocessesthat
pushedforgovernanceandsomeoftheseare:thequestfor
growthanddevelopment,theenvironmentalmovement,
globalizationandconsolidatingpeace.Thesearepractically
thesamevaluesorvirtuesfoundintheUNCharter.Likewise,
governance promotesthevirtuesofdecentralization,
participation,responsivenessandaccountabilityamongothers.

44. From“governance”, theconcept of“good
governance”hasemergedandbecameprominentin
internationalaidcirclesaround1989or1990.Itservedasa
generalguidingprinciplefordonoragenciestodemand
thatrecipientgovernmentsadheretoproperadministrative
processesinthehandlingofdevelopmentassistanceand
putinplaceeffectivepolicyinstrumentstowardsthatend.
(Doornbos2003)Whenthereisgoodgovernance,thereis
sustainabledevelopment.

45. KofiAnnan,inhisinauguralspeechinthe1stInternational
ConferenceonGovernanceforSustainableGrowthand
EquityinUnitedNations,NewYork,inJuly28-30,1997affirms
thiswhenhesaidthat:
“Goodgovernanceandsustainabledevelopmentareindivisible.Thatisthe
lessonofalloureffortsandexperiences,fromAfricatoAsiatoLatinAmerica.
Withoutgoodgovernance–withouttheruleoflaw,predictable
administration,legitimatepower,andresponsiveregulation--noamountof
funding,noamountofcharitywillsetusonthepathtoprosperity…Weare
fullyengagedineffortstoimprovegovernancearoundtheworld…good
governanceisindispensableforbuildingpeaceful,prosperousand
democraticsocieties.”(Annan1997)

46. Annanconcludedthat“goodgovernanceisperhapsthe
singlemostimportantfactorineradicatingpovertyand
promotingdevelopment.”(Annan1997)
AnADBdocument(2005)affirmedthatgoodgovernance
issynonymouswithsounddevelopmentmanagement.They
thenidentifiedsomekeyprinciplesofdevelopmentwhich
maybeconsideredaselementsofgoodgovernance.
Theseare:accountability,participation,predictability,and
transparency.Thetablebelowshowsthebasicelementsof
goodgovernanceanditskeydimensions.

47. Aspects
Phases ofPublicAdministration
OldPublicAdministrationNewPublicManagementPublicGovernance
TheoreticalrootsPoliticalscienceandpublic
policy
Rational/publicchoice
theoryand
management studies
Organizationalsociologyand
networktheory
NatureofthestateUnitary Disaggregated Pluralandpluralist
Focus Thepolicysystem Intra-organizational
management
Inter-organizational
governance
Emphasis Policyimplementation ServiceinputsandoutputsServiceprocessesand
outcomes
Relationship Potentialelementsofthe
policysystem
Independentcontractors
withinacompetitive
market-place
Preferredsuppliers,and
ofteninter-dependent
agents withinongoing
relationship
Governance
mechanism
Hierarchy Themarketandclassicalor
neo-classicalcontracts
Trustorrelationalcontracts
Valuebase Publicsectorethos Efficacyofcompetitionand
themarket-place
Neo-corporatist

48. History and Context
of the Development of
Public Administration
in the Philippines
Danilo R. Reyes

49. •ThePhilippinePublicAdministrationhasitsownhistory,contextsand
significantmilestonesthatmarkedthedevelopment ofthe
Philippineadministrativesystemtoday,andthefieldofstudythat
emergedtosupportit.
•LikemanyothercountriesintheAsia-Pacificregion,public
administrationinthePhilippinesevolvedandshapedfroma
constellationofinfluencesfromitscolonialpast.Subsequently,itwas
compelledtoadapttothevagariesandidiosyncrasiesofFilipino
cultureandtemperament.Itsstructureandfunctionalfeatures
todayconsistentlyretainthepatternsinheritedfromtheAmerican
colonialperiod.Thepublicadministration’sbehavioraldynamics
andpractice,however,followandassumedistinctFilipino
characteristicsandtraits,adjustedandsuperimposedonexplicit
structuresandformalitiesmanifestedinWesternbureaucratic
models.

50. •ThePhilippineswasacolonyofSpainforover300years
untilasuccessfulrevolutionin1896whenitdeclared
independenceonJune12,1898.ThePhilippinesmaywell
beconsideredthefirstrepublicanstateinAsia,having
promulgatedwhatcanberegardedasthefirst
republicanconstitutionintheregionin1899,now
commonly referredtoastheMalolosConstitution.
However,theindependenceofthefledglingrepublicwas
frustratedwhentheislandswerecededtotheUnited
StatesbySpainundertheTreatyofParis,whichalso
endedtheSpanish-AmericanWar.

51. Administrative Values in the Philippines
•Itisperhapssafetosaytodaythatpublicadministrationinthe
Philippinesobservesandpursuesadministrativevaluesthatare
amixtureofthreemajorsometimescompatible,sometimes
conflictinginfluences.
•Thefirstmajorinfluenceistheimpactofthelargersocietal
culturewherebureaucracymustoperate.ThewiderFilipino
societalcultureinpartshapesandinfluencesthevaluesfound
inPhilippinebureaucracy.Thus,suchculturalvalues(identified
andlooselytranslated)suchas,amorpropio(self-respect),
delicadeza(propriety),hiya(shame),utangnaloob(debtof
gratitude),andpakikisama(friendshiporfamilialties)reflecton
bureaucraticbehaviorandtheexerciseofofficialfunctions.

52. Administrative Values in the Philippines
•Superimposedonthesevaluesaresuchacceptednormsof
behaviorassocialacceptance, therespectfor
authority/elders,andtheinfluenceofreligion.Theresultof
thesecanbebothpositiveandnegative,andexpressedin
termsofrefusaltoengageinconfrontationoroutrightconflict
orcompromising policiesandprocedurestoavoid
disagreementsordifferences.
•Likewise,suchvaluesasrespectforseniorofficialsorpersons,or
inmanycases,offavoritism,paternalism,andnepotismcan
servetocompromisetheexerciseofofficialfunctionsand
duties.Specialtreatmentingovernmenttransactionscanalso
beaccordedtorelativesorevenprovincemates(Varela,
1996)

53. •Secondly,theformalitiesdictatedunderthenormsof
WeberianbureaucracyremainequallystronginPhilippine
bureaucracy.Meritandfitness,competence, and
qualificationspersistasstandardsinrecruitmentand
appointmentsevenifdisruptedattimesbypatronage
andspoils.Itcanbesaidperhapsthatthesevaluesare
theonesobservedorupheldfirst,dependingonthe
degreeofinfluenceofculturalorpoliticalforces.The
systemofrulesandprocedureslikewisearegenerally
observed,butcanbesetasideeitherbecauseofthe
interventionofapoliticianorbecauseofthedemands
andpressuresofculturalvaluesandties.

54. •Thirdly,theinfluencesofthecolonialperiodscontinueto
influenceadministrativebehavior,againinpositiveand
negativeways.TheAmericanvaluesofmeritandfitness
andcompetitiveexaminationscontinuetoholdswayand
enjoyacceptanceinthebureaucracy.Butsuchnegative
traitsasrefusaltoinitiateinnovations(nosehaga
novedad)orweakorindecisivecomplianceofrules
(obedezcoperonocumplo)continuetoimpairPhilippine
bureaucracy,thoughnotasrampantasduringthe
colonialera.

55. •Assuch,bureaucraticbehaviorandthevaluespursuedby
thePhilippinebureaucracytodaycouldbeviewedas
havingadaptedandadjustedtothevicissitudesand
vagariesofitsenvironmentanditspast.Bureaucratic
valuesandbehaviorinPhilippinepublicadministration
canthusbeviewedasawebofinfluencesandacurious
blendofindigenoussocialforces,implantednorms,and
coloniallegacies.Theseareadapted andsuited
accordingtothedemandsofparticularsituations.

56. •PublicadministrationinthePhilippinestodayisthusaproduct
ofthecolonialera,adaptedtotheidiosyncrasiesof
indigenousculturaltraditions,values,mores,andnorms.From
these,Filipinopublicadministrationpracticesandprocesses
wouldevolveintoacomplexartofadaptationand
improvisationsthatwouldreconcilethecharacteristicsof
WeberianmodelswiththatofFilipinovalues.Itisacomposite
blendingofinfluencesandvestigesofpastpracticesand
processesderivedfromcolonialtimesandatthesametime
madetoapplytothevagariesofFilipinovaluesandnorms.Th
eAmericansystemhasbeensomewhatthedominant
influence,insofarasthesystem,rules,structures,andformalities
areconcerned.

57. References
•ChangesandcurrentchallengesinPublicAdministration
byVincenzoVignieri(2020)
•HistoryandContextoftheDevelopment ofPublic
AdministrationinthePhilippinesbyDaniloR.Reyes(2011)
•IsThereaPhilippinePublicAdministration?OrBetterStill,
ForWhomIsPhilippinePublicAdministration?ByAlex
Brillantes,Jr.andMaricelFernandez(2008)