From The Making of the Modern Philippines: Pieces of a Jigsaw State, by Philip Bowring (Bloomsbury Academic, 2022), Kindle pp. 128-130:
The 1987 Constitution was intended to promote ‘maximum decentralization short of federalization’. It was imprecise about decentralization of public finances, merely referring to ‘just shares’ and allowing local taxation subject to rules made by Congress. It also provided for significant devolution of functions and to enable this a 1991 law saw allocation of 40 per cent of the Bureau of Internal Revenue collection go to local government units (LGUs). This was further allocated by a complex formula to 23 per cent for provinces and cities, 34 per cent for municipalities and 20 per cent for barangays. The law also set rules for taxes on property, mining and other local economic activity.
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In the Philippines, the decision-making power of the executive was centralized, the administrative sinews needed for implementation were weak. So, too, was the justice system, a mix of Spanish and US influences. In principle, it was centralized with all judges, including those at the lowest level, the Municipal Trial Courts, chosen by Manila. In practice, however, local politics played a role in the choice of judges. The reputation of the court system for corruption and delay was a further obstacle to administrative efficacy.
Discussion of federalism has long been impeded by the assumption that it requires a change in the constitution. That in turn raises fears of presidents trying to perpetuate themselves by changing to a parliamentary system or allowing two terms. The existing constitution allows for autonomous zones in Muslim regions – the ARRM predates 1987 – and the Cordillera, home to various indigenous groups in northern Luzon. However, Cordillera autonomy has never happened thanks to a lack of unity. It remains possible within the constitution for Congress to grant more administrative and fiscal power to all regions or provinces. However, even if desirable in principle there are fears that perpetuate, even strengthen, dynastic dominance. Would it spread national wealth better, or simply increase divisions between the city hubs and the resource rich areas on the one hand and the rest of the country on the other?
There was an argument that the Philippines needed more centralization, not less. The gap between policy made in Manila and its implementation was partly due to the inadequacies of central ministries but also to the small size, politicization and frequent corruption of local government units. Regional councils could collect data, advise and make plans which cover provinces and cities, but they have no decision-making or implementing authority. Whilst there has, naturally, been a desire by the members of the House to see an increase in LGU funding by Manila, there have been differing views on whether local spending power is more or less productive. The existing regions have been a starting point for discussing the federal system, but are seventeen regions (including the BARMM [B = Bangsamoro ‘Moro Nation’] and Cordillera) too many? Or too few – Sulu for example wanted its own, separate from the BARMM? Or was division by geography not in keeping with any real sense of identity?
The existing regions are also imbalanced with the contiguous National Capital Region, Central Luzon and Calabarzon (Southern Tagalog) all far more populous than others. As of 2015 Calabarzon, had a population of 14 million, Caraga 3 million. Little of the discussion on federalism has got to grips with the issues of indigenous peoples (IPs) or lumads as they are known in Mindanao. The need for protection of their land and language rights has long been accepted in principle but in practice remains subject to erosion and conflict. They are too numerous to be ignored but too disparate to make into coherent units as the failure to establish autonomy for the Cordillera has shown. Despite the fact that, with the exception of the pre-Austronesian [Aeta/Agta] groups, they are no more or less indigenous than the average rice farmer from Tarlac. Yet the IPs are often treated as inferior citizens, lacking the ‘civilization’ of those more impacted by the centuries of colonial rule. In effect, they are subject to abuse with their schools ‘red-tagged’, communal lands seized by settlers and plantation owners, and their leaders accused of supporting the NPA. Alternatively, they may be subject to well-meaning paternalism by earnest NGOs which emphasizes their differences not their similarities to the wider population. The use of English in education and official documents also diminishes the role of the national language and hence the identity of regional languages whether widespread like Cebuano or confined to small IP communities.
The basic argument for federalism is that the Philippines’ fragmented geography made centralization costly and inefficient. It was unresponsive to differing local needs and was a dampener on local initiatives and was unable to harness regional pride in a country where a sense of regional identity was strong – as senate elections also showed. It limited competition between regions and held up resource development.


