Entre la formalidad administrativa y la realidad laboral: análisis socio- jurídico del plan de formalización laboral del departamento administrativo de la función pública
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Fecha
2025
Autores
Benítez Barreto, María Angélica
Bohórquez Gómez, Karoline
Molina Miranda, Leinder
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Ediciones Universidad Simón Bolívar
Facultad de Ciencias Jurídicas y Sociales
Facultad de Ciencias Jurídicas y Sociales
Resumen
El presente ensayo analiza la persistente tensión entre la formalidad administrativa y la realidad laboral en el sector público colombiano, a partir del estudio socio- jurídico del Plan de Formalización Laboral formulado por el Departamento Administrativo de la Función Pública (DAFP). El fenómeno de las denominadas “nóminas paralelas” y la expansión masiva de los contratos por prestación de servicios (OPS) han configurado un escenario estructural de precarización laboral, donde funciones permanentes se ejecutan bajo vínculos temporales que desconocen el principio constitucional de primacía de la realidad y generan un alto riesgo jurídico para el Estado. Aunque el actual gobierno impulsó una agenda de formalización orientada a sustituir progresivamente la contratación temporal por vínculos estables, la evidencia reciente muestra una brecha significativa entre el discurso y la práctica, marcada por el incremento del número de OPS y las tensiones fiscales y administrativas que dificultan la consolidación del modelo.
Desde un enfoque crítico, el ensayo contrasta los aportes doctrinales y empíricos de autores que respaldan la tesis de la precarización estatal con aquellos que introducen perspectivas alternativas centradas en la flexibilidad institucional, la falta de regulación legislativa, la corrupción o la necesidad de mecanismos contractuales adaptativos. El estudio concluye que la problemática supera lo estrictamente laboral y responde a fallas estructurales de planeación, debilidades normativas y vacíos en la gestión del talento humano. En este contexto, el Plan de Formalización Laboral del DAFP emerge como una herramienta relevante, aunque insuficiente por sí sola, para avanzar hacia un sistema de empleo público coherente con los principios del Estado Social de Derecho y con la protección efectiva de los derechos laborales.
This essay examines the persistent tension between administrative formality and labour reality in the Colombian public sector, based on a socio-legal study of the Labour Formalization Plan designed by the Administrative Department of Public Service (DAFP). The phenomenon of so-called “parallel payrolls” and the massive expansion of service provision contracts (OPS) has shaped a structural scenario of labour precariousness, in which permanent functions are performed under temporary arrangements that disregard the constitutional principle of primacy of reality and generate a high legal risk for the State. Although the current government has promoted a formalization agenda aimed at progressively replacing temporary hiring with more stable forms of employment, recent evidence reveals a significant gap between discourse and practice, marked by the increase in the number of OPS and by fiscal and administrative tensions that hinder the consolidation of the proposed model. From a critical perspective, the essay contrasts the doctrinal and empirical contributions of authors who support the thesis of state-led precarization with those who introduce alternative viewpoints focused on institutional flexibility, lack of legislative regulation, corruption, or the need for adaptive contractual mechanisms. The study concludes that the problem goes beyond strictly labour-related matters and is rooted in structural planning failures, normative weaknesses, and gaps in human resource management. In this context, the DAFP Labour Formalization Plan emerges as a relevant, though not sufficient, instrument to move towards a public employment system consistent with the principles of the Social Rule of Law and the effective protection of labour rights.
This essay examines the persistent tension between administrative formality and labour reality in the Colombian public sector, based on a socio-legal study of the Labour Formalization Plan designed by the Administrative Department of Public Service (DAFP). The phenomenon of so-called “parallel payrolls” and the massive expansion of service provision contracts (OPS) has shaped a structural scenario of labour precariousness, in which permanent functions are performed under temporary arrangements that disregard the constitutional principle of primacy of reality and generate a high legal risk for the State. Although the current government has promoted a formalization agenda aimed at progressively replacing temporary hiring with more stable forms of employment, recent evidence reveals a significant gap between discourse and practice, marked by the increase in the number of OPS and by fiscal and administrative tensions that hinder the consolidation of the proposed model. From a critical perspective, the essay contrasts the doctrinal and empirical contributions of authors who support the thesis of state-led precarization with those who introduce alternative viewpoints focused on institutional flexibility, lack of legislative regulation, corruption, or the need for adaptive contractual mechanisms. The study concludes that the problem goes beyond strictly labour-related matters and is rooted in structural planning failures, normative weaknesses, and gaps in human resource management. In this context, the DAFP Labour Formalization Plan emerges as a relevant, though not sufficient, instrument to move towards a public employment system consistent with the principles of the Social Rule of Law and the effective protection of labour rights.
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Palabras clave
Formalización laboral, Contrato realidad, Función pública, Precarización laboral, Planificación administrativa
