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
governors, but also serve as liaisons
Most of the published literature on between the local chief executives and
Philippine local governance focuses on the departments of the city or province, and
capacity and leadership role of the local between their city or province and other
chief executives and elected officers. As of local government units (Article X, LGC
this writing, few focus on the role of non- 1991). This strategic role further testifies
elected officials such as local government the importance of local government
administrators. This lack of attention to administrators. Below average performance
local administrators, as significant actors in of administrators puts local bureaucracies
the devolution of functions and at risk, and is ultimately a step back from
responsibilities from national to local good governance.
governments, underplays the important
role of bureaucrats in good governance. The examination of the roles and functions,
competencies, and development needs of
As stated in the Local Government Code of provincial and city government
1991 or LGC, decentralization was legislated administrators, serves as a reference point
with the aim of efficient and effective for policy development and the
delivery of public services. Indeed, the focus establishment of capacity building programs
on local chief executives or elected officials that will help this sector perform their roles
as front liners in the delivery of public better and enable them to support good
services is important. However, the role of local governance.
local government administrators cannot be
dismissed. As counterparts of their local Article X of the Local Government Code
chief executives, they play a critical role in states that local government administrators
the functioning of cities and provinces have the following responsibilities: (1)
ranging from managing its day-to-day affairs develop plans and strategies and its
to translating policies into action. implementations; (2) assist in the
coordination of local government units; (3)
The competencies, attributes, and values of establish and maintain a sound personnel
local government administrators are program; (4) conduct continuing
relevant in promoting good governance. organizational development; (5) be in the
Not only do administrators act as frontline of delivery of administrative
counterparts of their respective mayors or 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).

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

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

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

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 Table 2.1. Essential Knowledge Table 2.3. Other Helpful Attributes

 Knowledge of the roles and functions of the  Leadership

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

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Policy Recommendations help them work well together with their
staff, it will also help develop second liners.
Qualifications, specifically management
experience and skills, are given substantial Table 2 lists the essential Knowledge, Skills,
consideration in the selection of and Attributes of local government
administrators. Despite political administrators. Table 3 lists some of the
considerations, local chief executives do not programs that they found helpful in
just appoint anybody in the position. Table preparing them for their jobs.
2.1, 2.2., and 2.3. lists the summary of the
most important competencies and The model of an effective administrator
attributes required to effectively perform (A.P.P.E.A.L) highlights the important
the important duties of city and provincial characteristics, skills, and values
administrators which the respondents administrators must possess. This model
identified themselves. In practice, not all can be used to determine the direction of
local government administrators come into training and capacity building programs for
the position assume the position with the administrators.
complete set of competencies that will
enable them to perform the function 2) In addition to training and short courses,
effectively. we also recommended the conduct of
regular knowledge-sharing activities.
Most knowledge and skillsets identified by Administrators note that there are still
the local government administrators as plenty of benefits to be gained from sharing
essential can be developed through and discussing best practices, ideas, and
education, training, mentoring, and capacity experiences with their peers. Such
building. Several personal attributes can opportunities are rare at present because
also be developed through training and local government administrators do not
education, but some are intrinsic to people have an active league or organization unlike
while others are cultivated through life and other more organized elected and career
professional experiences. local government officials.

1) The first recommendation is the For example, there is a League of Provinces,

development of a capacity building program League of Cities, League of Vice-Governors,
for both incoming and incumbent local League of Local Planning and Development
government administrators based on the Coordinators, and League of Secretaries of
core competencies identified in this study. the Sanggunian, among others, but no
Most administrators interviewed for the League of Administrators. Given the
study acknowledged the need to prepare importance of these officials, the
and build the capacities of both new and establishment of a league that will provide
continuing local government support might be considered. Short of this,
administrators. At present, there are few knowledge-sharing activities can also be
short courses and training programs geared organized among administrators.
specifically towards the needs of people in
their position. Some administrators attend 3) The development of reference materials
preparatory short courses with their mayors and guides for local government
or governors, but this appears limited only administrators should be supported in order
to those who were newly elected. Several to shorten learning curves of new
suggested that support staff and administrators and guide incumbent ones.
department heads should also be made to The book Running a Bureaucracy by Ma.
attend these activities. This will not only Gladys Cruz - Sta. Rita, who served as

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provincial administrator of Bulacan for 17 Table 3. Helpful Education and Training
years is at present, the only available Programs Identified by Administrators
authoritative reference book for local
government administrators. Bachelor’s Degree
 Development studies
The book covers a wide range of topics  Public administration/management
including: good governance practices,  Economics or public administration
methods of management, administration,  Politics (e.g., political science)
planning, organizational and human  Legal studies
resource development, crisis preparedness,
Post-Graduate Education
and other systems. It also covers topics like
 Management (e.g., MBA, other manage-
leadership, spirituality, and stress
ment courses)
management and provides references for  Law
practical matters like pertinent laws,  Politics (e.g., political science)
issuances and decrees, budgeting, and  Development studies
procurement. Several respondents  Public administration
mentioned using the book as reference.  Economics
They noted the need for more such  National security or leadership studies
reference materials.
Training or Seminar Topics
4) The long overdue review of the Local  Planning
Government Code should pay attention to  Procurement
 Budgeting/Finance
the necessity of improving the qualifications
 Local Government Code of 1991
set for local administrators. Some veteran  Public administration/management and
local government administrators suggested leadership studies
that graduate degrees be a requirement for  Organizational Management and Develop-
candidates to the position. Others did not ment
mention specific measures but stressed that  Administrative Code
appointment of administrators should not  People management
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”. Concluding Notes

5) The professionalization of the position of This policy note identified and highlighted
administrators should be considered. This the important but often unacknowledged
would entail amendment of the LGC that role of local government administrators in
would make the position one of career the governance of cities and provinces. As
professionals instead of a coterminous chief administrators, they ensure that the
political appointee. This arrangement can local government performs its mandates,
be found in U.S. City Managers where the devolved public services are delivered,
local council hires a professional manager national policies and programs, and the
who is not subject to any one politician but policies and programs of their local chief
is accountable to the local council. This will executives are implemented within their
highlight managerial rather than political jurisdictions.
qualifications and prevent politicization that
could hamper effective performance of This policy note also identifies essential
those in the position. competencies and attributes local
government administrators need to be

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equipped with, and suggests ways by which These competencies can be developed
these needs can be addressed through through capacity building programs for new
human resource and organizational and continuing administrators. Beneficial
development capacity building programs. post-graduate programs include:
management, law, economics, politics, and/
In practice, city and provincial or public administration. Seminars and
administrators perform functions that are training on topics like the LGC, the
essential to local government, but may Administrative Code, and other laws that
technically be beyond those specifically affect local government, planning,
outlined in subsections 1 to 4 of Article X of budgeting, procurement, and finance, etc.
the Local Government Code of 1991. are also helpful.
Examples are direct supervision of
department heads, deciding on budgets and Development of these programs can be
disbursement of funds, and formulating supported by the Philippines Australia
policies and programs for the local Human Resource and Organisational
government unit. These are technically Development Facility (PAHRODF), the
powers of the local chief executive, but in Department of Interior and Local
practice these are often delegated to Government (DILG), the Civil Service
administrators by virtue of subsection 5, Commission (CSC), the Commission on
Article X of RA 7160 which states that Higher Education (CHED), and other
administrators “exercise such other powers education and training organizations.
and perform such other duties and
functions as may be prescribed by law or
References
ordinance.”

We conclude that administrators need to be United Nations Development Programme

management professionals equipped with [UNDP]. (1997). Governance for
the appropriate knowledge, skills, and Sustainable Human Development.
attributes in order to perform their jobs New York: United Nations
effectively and contribute to good Development Programme.
governance. This should be considered in
future amendments of the Local Sta. Rita, G. (2008). Running a bureaucracy:
Government Code. A guidebook for Local Government
Unit Administrators, other Public
Essential knowledge includes: RA 7160 and Managers, and Elected Officials.
other policies affecting local governments, Quezon City: UP National College for
and the roles, functions, and processes of Public Administration and
local government branches and Governance.
departments. Essential skills include: Torneo, A.R., et. al, (2015) The Performance-
management, communication, planning and Based Incentives System in the DILG,
finance, time and stress management, CHED, and DepEd: A Scoping Report.
management of change, human resource (unpublished) Report submitted to
and organizational development, and the Philippines Australia Human
political skills. Desirable attributes include: Resources and Organisational
leadership, adaptability, integrity, broad Development Facility.
perspective, intellectual and emotional
competence, spirituality, and the ability to
maintain the trust of the local chief
executive.

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