Page 1. Introduction. Ador R. Torneo, Francisco A. Magno, and Monica Ann P. Abaya

Transcription

1 An Assessment of the Competencies, Roles and Functions, and Human Resource Development Needs of Philippine Provincial and City Government Administrators: Policy Recommendations Ador R. Torneo, Francisco A. Magno, and Monica Ann P. Abaya Introduction Most of the published literature on Philippine local governance focuses on the capacity and leadership role of the local chief executives and elected officers. As of this writing, few focus on the role of nonelected officials such as local government administrators. This lack of attention to local administrators, as significant actors in the devolution of functions and responsibilities from national to local governments, underplays the important role of bureaucrats in good governance. As stated in the Local Government Code of 1991 or LGC, decentralization was legislated with the aim of efficient and effective delivery of public services. Indeed, the focus on local chief executives or elected officials as front liners in the delivery of public services is important. However, the role of local government administrators cannot be dismissed. As counterparts of their local chief executives, they play a critical role in the functioning of cities and provinces ranging from managing its day-to-day affairs to translating policies into action. The competencies, attributes, and values of local government administrators are relevant in promoting good governance. Not only do administrators act as counterparts of their respective mayors or governors, but also serve as liaisons between the local chief executives and departments of the city or province, and between their city or province and other local government units (Article X, LGC 1991). This strategic role further testifies the importance of local government administrators. Below average performance of administrators puts local bureaucracies at risk, and is ultimately a step back from good governance. The examination of the roles and functions, competencies, and development needs of provincial and city government administrators, serves as a reference point for policy development and the establishment of capacity building programs that will help this sector perform their roles better and enable them to support good local governance. Article X of the Local Government Code states that local government administrators have the following responsibilities: (1) develop plans and strategies and its implementations; (2) assist in the coordination of local government units; (3) establish and maintain a sound personnel program; (4) conduct continuing organizational development; (5) be in the frontline of delivery of administrative support services particularly disaster response and recovery; (6) recommend to Disclaimer: This publication is made possible by the generous support of the Australian Government. The contents are the responsibility of the author and do not necessarily reflect the views of the Australian Government or the Philippine Australia Human Resource and Organisational Development Facility (PAHRODF). Page 1

2 the sanggunian or council and advice the governor and mayor on administrative matters; and (7) exercise powers and perform such other duties and functions as may be prescribed by law or ordinance. In addition, the local government structure also suggests other functions. Administrators also work as liaisons in internal and external functions of their cities or provinces. As indicated in Figure 1, internal functions involve strengthening ties with the mayor or governor and internal departments of their city or province. For external functions, administrators are also in charge of managing relationships between their city or province and other local government units. Figure 1. Administrator in a Typical Philippine Local Government Unit To qualify for a local government administrator position, candidates are required to hold an undergraduate degree in addition to being a Filipino citizen. Moreover, they are expected to have good moral character and first grade civil service eligibility. Aspiring administrators should also have at least have five (5) years of experience in management. Other than these, the qualifications appear to be fairly minimal. Study Design and Limitations The study this policy note was based on is limited to the responses of selected local government administrators in the Philippines. Selected current and former administrators that held the position for a term or more were interviewed. The selection of administrators ensured that: (1) different cities and provinces in Luzon, Visayas, and Mindanao are properly represented; and (2) new and seasoned administrators were both represented. Due to time and resource restraints, the selection of ten (10) current or former city administrators, and six (6) current or former provincial administrators were dependent on their availability and willingness to participate. In this policy note, the question on what competencies, such as knowledge, skills, and attributes Philippine provincial and city administrators need to effectively carry out their mandates and functions will be addressed. It will also highlight the roles and functions of local government administrators in policy and in practice, identify factors that facilitate and hinder their performance, and suggest policies and human resource interventions to improve recruitment and preparation of incoming administrators and the capacity of incumbent ones. Respondent Profile: Prior Work Experience, Educational Attainment, and Length of Experience Seven (7) out of ten (10) city administrators had experience working in the private sector prior to becoming administrators, while three (3) identified to have worked solely for the government. In addition, of the ten (10), only three (3) had worked for NGOs. Similar ratios were obtained from provincial administrators. Five (5) out of the six (6) provincial administrators have Page 2

3 worked for the private sector prior serving as provincial administrators. All of the six (6) had public sector experience before becoming administrators, while one two (2) out of the six (6) mentioned to have worked for NGOs. Their backgrounds varied from senior staff or consultants to senators, legislators, and or local chief executives, heads of departments and/or divisions and a few were previously elected local officials themselves. Some others were involved in local election campaigns. In terms of private or nonprofit sector experience, the backgrounds varied from lawyers engaged in private practice, corporate managers, and NGO executives. Administrators interviewed for the study were all generally in their 40s and 50s and the majority were males. Only two (2) of the total sixteen (16) respondents were female. All sixteen (16) administrators had bachelor s degrees. Six (6) of city administrators had post-graduate degrees while three (3) of the provincial administrators completed post-graduate studies. Their degrees varied. Nonetheless, majority of the administrators had undergone formal education and training relevant to their roles as administrators working in public administration and governance. In terms of length of service, six (6) out of ten (10), or a majority of City administrators were seasoned administrators with at least two (2) terms or six (6) years worth of experience in the position. Among the provincial administrators, only three (3) out of six (6) had more than one term experience in the position. Roles and Functions of Local Government Administrators The diversity of the responses underscores the reality that the role of LGU administrators has both political and administrative dimensions. The weight of the political and the administrative components vary per administrator. Some perform mostly administrative roles, others balance political and administrative functions, in a few others, political roles are more overt and substantive. Among the respondents, however, even the most politically active administrators functioned more like managers than politicians. The legal functions provided in Article X of the LGC have been stated in the previous section. In practice, local government administrators have exercised powers that appear to go beyond the broad provisions of the LGC. The job descriptions provided by law are broad and general. And in practice, the respondents have liberally interpreted these provisions. Local government administrators have functioned as spokespersons of the mayor or governor, performed budgeting, and ensured re-election of local chief executive among many others. Administrators justified these functions as part of their other powers and other duties. A comprehensive list of the identified functions and roles of the respondents vis-à -vis the per item provisions under the LGC is attached at the end of this policy paper. Factors that Shape, Hinder and Facilitate Performance of LGU Administrators All administrators interviewed were aware and refer to the LGC provision on their roles in functions. Several administrators called the LGC their bible. In practice, however, city and provincial government administrators perform a broad range of duties and exercise powers that in many ways appear to go beyond the more explicit provisions of the LGC. For example, they typically supervise all department heads despite the lack of an explicit provision granting them this authority. Page 3

4 The operative phrase in Article X, Section 480, item b, number 2, subsection (i) is assist in the coordination of the work of all the officials of the local government unit Nevertheless, we observe in practice local government administrators exercising authority over all departments. This authority is assumed to be a direct delegation of the powers of the local chief executive and/or subsumed under subsection 5, which states exercise such other powers and perform such other duties and functions as may be prescribed by law or ordinance. Because of the broad range of functions and authority they wielded, they are often referred to as little mayors or little governors. Table 1. Factors that Affect the Roles of LGU Administrators (in Practice) Interpretation of the administrators roles and authority based on the interpretation of the Local Government Code of 1991 Management style of the Local Chief Executive: Macro-manager or micro-manager Personal and Working Relationship between the Local Chief Executive and the LGU Administrator Qualifications and skill-set of the LGU Administrator Internal resistance is one of the main hindrances to effective performance of administrators. Several administrators shared that veteran employees thwarted changes in the system proposed by new administrators. Another challenge recognized by administrators is the poor quality of personnel in local bureaucracies many of whom are appointees accommodated for political reasons instead of actual professionals. Administrators are therefore unable to maximize the capacity of the bureaucracy due to limitations on their ability to shuffle and hire personnel. Another hindrance cited by the respondents is limited budget. According to some, the national government provides inadequate funds and tends to be slow in releasing them, thus undermining their ability to perform their functions effectively. On the other hand, a trusting and close working relationship between administrators and their mayors or governors has given them a substantial degree of autonomy that aided them in addressing local government affairs in timely fashion. Several administrators also cited that long experience in management, public service, and experience in senior management positions have contributed towards their effective performance. They note however that managing a local government is more difficult than running the affairs of a private corporation. Competencies of Effective Local Government Administrators The responses of the administrators with regards to essential knowledge, skills, and attributes that all local government administrators should possess are listed in Table 2.1, 2.2., and 2.. For brevity, they can be summarized by the following acronym, A.P.P.E.A.L. These ideal characteristics are complementary to the attributes of good governance of the United Nations Development Programme (1997) which are: (1) participation; (2) rule of law; (3) transparency; (4) responsiveness; (5) consensus orientation; (6) equity; (7) effectiveness and efficiency; and (8) strategic vision. The first letter in the acronym stands for adaptable and flexible. With this attribute, the relationship between local administrators and their chief executives is prosperously maintained. It also helps in interacting with old employees who resist reforms. The second key attribute is advocating and practicing people-centered public administration. Although not elected, administrators are expected to still pursue public interests and be accountable to the public. Page 4

5 Table 2.1. Essential Knowledge Knowledge of the roles and functions of the local executive and legislative branches Familiar with the administrative and operational aspects of LGU departments Knowledge of national government processes that affect local governments Familiar with national laws that affect local governments (e.g., Local Government Code of 1991, Government Procurement Reform Act of 2003, Administrative Code, etc.) Knowledge of laws and the legal process are helpful but not required Familiar with local policies and ordinances Familiar with local governance and public administration Understand the horizontal and vertical aspects of governance Familiar with local community, its people, history, traditions The third key attribute is a passion to serve. Since administrators have broad roles and functions, administrators must have the passion to continuously and committedly acquire the skills and knowledge necessary to serve. As phrased by one respondent, administrators should perform above and beyond the call of duty. Table 2.2. Essential Skills Management and coordination Organizational development Planning, budgeting and finance People skills, negotiation Interpersonal and communication skills including feedback, media, and public relations Stress management Time management, multitasking and prioritizing Management of change Business process reengineering Can navigate and balance both political and administrative aspects of position Table 2.3. Other Helpful Attributes Leadership Good relationship with the local chief executive strong trust is essential Adaptive, flexible, and has foresight Advocate of good governance Focused, goal-oriented, self-disciplined Balanced and fair, trustworthy, has integrity, respectable Has strong disposition, patient and emotionally competent (rational, logical, empathic) Compassionate, people-centric and with strong desire to serve the public Ability to see the bigger picture Spirituality The fourth attribute is education and experience. Administrators must be welleducated and well-experienced, which is not much of an issue for the administrators that were interviewed for the study. Upholding accountability and transparency is the fifth attribute. Administrators must facilitate the democratic character of their units by supervising procurement processes, submitting to checks and balances, and making information publicly available, among others. The last key attribute of an effective administrator is leadership. This mainly means having the ability to effectively communicate. As counterparts of local chief executives, administrators should be able have productive dialogue with the staff instead of just directing them. Development of local government administrators should not be limited to their knowledge and skills, but also to their values. According to the respondents, administrators must be goaloriented, amply trusting of their staff, happy, and content. Page 5

6 Policy Recommendations Qualifications, specifically management experience and skills, are given substantial consideration in the selection of administrators. Despite political considerations, local chief executives do not just appoint anybody in the position. Table 2.1, 2.2., and 2.3. lists the summary of the most important competencies and attributes required to effectively perform the important duties of city and provincial administrators which the respondents identified themselves. In practice, not all local government administrators come into the position assume the position with the complete set of competencies that will enable them to perform the function effectively. Most knowledge and skillsets identified by the local government administrators as essential can be developed through education, training, mentoring, and capacity building. Several personal attributes can also be developed through training and education, but some are intrinsic to people while others are cultivated through life and professional experiences. 1) The first recommendation is the development of a capacity building program for both incoming and incumbent local government administrators based on the core competencies identified in this study. Most administrators interviewed for the study acknowledged the need to prepare and build the capacities of both new and continuing local government administrators. At present, there are few short courses and training programs geared specifically towards the needs of people in their position. Some administrators attend preparatory short courses with their mayors or governors, but this appears limited only to those who were newly elected. Several suggested that support staff and department heads should also be made to attend these activities. This will not only help them work well together with their staff, it will also help develop second liners. Table 2 lists the essential Knowledge, Skills, and Attributes of local government administrators. Table 3 lists some of the programs that they found helpful in preparing them for their jobs. The model of an effective administrator (A.P.P.E.A.L) highlights the important characteristics, skills, and values administrators must possess. This model can be used to determine the direction of training and capacity building programs for administrators. 2) In addition to training and short courses, we also recommended the conduct of regular knowledge-sharing activities. Administrators note that there are still plenty of benefits to be gained from sharing and discussing best practices, ideas, and experiences with their peers. Such opportunities are rare at present because local government administrators do not have an active league or organization unlike other more organized elected and career local government officials. For example, there is a League of Provinces, League of Cities, League of Vice-Governors, League of Local Planning and Development Coordinators, and League of Secretaries of the Sanggunian, among others, but no League of Administrators. Given the importance of these officials, the establishment of a league that will provide support might be considered. Short of this, knowledge-sharing activities can also be organized among administrators. 3) The development of reference materials and guides for local government administrators should be supported in order to shorten learning curves of new administrators and guide incumbent ones. The book Running a Bureaucracy by Ma. Gladys Cruz - Sta. Rita, who served as Page 6

7 provincial administrator of Bulacan for 17 years is at present, the only available authoritative reference book for local government administrators. The book covers a wide range of topics including: good governance practices, methods of management, administration, planning, organizational and human resource development, crisis preparedness, and other systems. It also covers topics like leadership, spirituality, and stress management and provides references for practical matters like pertinent laws, issuances and decrees, budgeting, and procurement. Several respondents mentioned using the book as reference. They noted the need for more such reference materials. 4) The long overdue review of the Local Government Code should pay attention to the necessity of improving the qualifications set for local administrators. Some veteran local government administrators suggested that graduate degrees be a requirement for candidates to the position. Others did not mention specific measures but stressed that appointment of administrators should not solely depend on the gut feel of the current LCE and that administrators must be products of career and not mere products of the current political climate. 5) The professionalization of the position of administrators should be considered. This would entail amendment of the LGC that would make the position one of career professionals instead of a coterminous political appointee. This arrangement can be found in U.S. City Managers where the local council hires a professional manager who is not subject to any one politician but is accountable to the local council. This will highlight managerial rather than political qualifications and prevent politicization that could hamper effective performance of those in the position. Table 3. Helpful Education and Training Programs Identified by Administrators Bachelor s Degree Development studies Public administration/management Economics or public administration Politics (e.g., political science) Legal studies Post-Graduate Education Management (e.g., MBA, other management courses) Law Politics (e.g., political science) Development studies Public administration Economics National security or leadership studies Training or Seminar Topics Planning Procurement Budgeting/Finance Local Government Code of 1991 Public administration/management and leadership studies Organizational Management and Development Administrative Code People management Concluding Notes This policy note identified and highlighted the important but often unacknowledged role of local government administrators in the governance of cities and provinces. As chief administrators, they ensure that the local government performs its mandates, devolved public services are delivered, national policies and programs, and the policies and programs of their local chief executives are implemented within their jurisdictions. This policy note also identifies essential competencies and attributes local government administrators need to be Page 7

8 equipped with, and suggests ways by which these needs can be addressed through human resource and organizational development capacity building programs. In practice, city and provincial administrators perform functions that are essential to local government, but may technically be beyond those specifically outlined in subsections 1 to 4 of Article X of the Local Government Code of Examples are direct supervision of department heads, deciding on budgets and disbursement of funds, and formulating policies and programs for the local government unit. These are technically powers of the local chief executive, but in practice these are often delegated to administrators by virtue of subsection 5, Article X of RA 7160 which states that administrators exercise such other powers and perform such other duties and functions as may be prescribed by law or ordinance. We conclude that administrators need to be management professionals equipped with the appropriate knowledge, skills, and attributes in order to perform their jobs effectively and contribute to good governance. This should be considered in future amendments of the Local Government Code. Essential knowledge includes: RA 7160 and other policies affecting local governments, and the roles, functions, and processes of local government branches and departments. Essential skills include: management, communication, planning and finance, time and stress management, management of change, human resource and organizational development, and political skills. Desirable attributes include: leadership, adaptability, integrity, broad perspective, intellectual and emotional competence, spirituality, and the ability to maintain the trust of the local chief executive. These competencies can be developed through capacity building programs for new and continuing administrators. Beneficial post-graduate programs include: management, law, economics, politics, and/ or public administration. Seminars and training on topics like the LGC, the Administrative Code, and other laws that affect local government, planning, budgeting, procurement, and finance, etc. are also helpful. Development of these programs can be supported by the Philippines Australia Human Resource and Organisational Development Facility (PAHRODF), the Department of Interior and Local Government (DILG), the Civil Service Commission (CSC), the Commission on Higher Education (CHED), and other education and training organizations. References United Nations Development Programme [UNDP]. (1997). Governance for Sustainable Human Development. New York: United Nations Development Programme. Sta. Rita, G. (2008). Running a bureaucracy: A guidebook for Local Government Unit Administrators, other Public Managers, and Elected Officials. Quezon City: UP National College for Public Administration and Governance. Torneo, A.R., et. al, (2015) The Performance- Based Incentives System in the DILG, CHED, and DepEd: A Scoping Report. (unpublished) Report submitted to the Philippines Australia Human Resources and Organisational Development Facility. Page 8