This paper examines the role of developmental leadership in two major reforms introduced in the Philippines in 2012: the passage into law of excise tax reform which significantly raised taxes on cigarettes and alcohol, and the re-registration of voters in the Autonomous Region of Muslim Mindanao (ARMM). These reforms have a) strengthened government finances and healthcare; and b) improved the quality of elections and promoted good governance and conflict resolution in the southern Philippines.
The study finds that even with strong presidential leadership, reform coalitions were key to the successful drafting of legislation and implementation of the new laws. Its findings suggest lessons for economic and governance reform in similar contexts – especially in oligarchical democracies, where competition for elected office is closely linked to the entrenched interests of business and industry.
Key findings
The Aquino Administration relied on encouragement and assistance from coalitions to enact and implement the reforms. Further:
- Reform coalitions were not necessarily made up entirely of reformers, and political compromises and alliances of convenience were necessary: The success of the 2012 reforms was achieved through a highly complex political process that required collaboration with a wide variety of actors.
- The reform process was highly labour-intensive and required committed activists from experienced advocacy groups to bring the process to fruition.
- Success required careful and continued attention not only to legislation, but also to implementation: Activists were vigilant and worked hard after the reforms were drafted and after they were given legal status to make sure they were not watered down.
- The emergence of reform activists and advocacy groups in the Philippines had been a long-term process: The success of the Philippine reform coalitions depended not only on the activists’ commitment to these issues, but also on their accumulated experience from earlier reform campaigns in the country.
Policy implications
- Monitoring changing signals from a government makes it possible to exploit openings to exert influence and encourage action: Proponents of reform who are closely attentive – and adaptive – to shifts in government reform agendas and approaches are likely to have the most success, especially if they consistently work to expand access to policy-makers.
- A government’s own reform agenda may be more effective if assisted by reform coalitions
- Reform initiatives do not have to be confined to ‘backstopping’ the reform agendas of incumbent governments and ruling parties: Playing this kind of supportive role can of course produce concrete results, but the Philippine reforms of 2012 demonstrate that it is possible for reform coalitions to be proactive instead of confining themselves to the agenda of an incumbent government.
- Reform achievements are difficult to plan or predict, and reform movements are complicated, often throwing up uncertainty and ambiguity: As demonstrated by this case study, pragmatic alliances may have to be made with unlikely partners – another reason why flexibility is a valuable asset for reformers.
- A few experienced, well-connected partners can mobilize large-scale support
- Local activists are likely to have valuable experience and expertise
- Activists are created through the political process of campaigns for reform: Beyond the concrete, measurable achievements of each reform, there is a longer-term legacy that provides the foundations for future reform campaigns.
- Reform coalitions and the process of reform can benefit from consistent long-term support, rather than episodic support for each individual campaign: reform coalitions that have long-term support can strengthen the implementation of any reform victory, and sustain the broader infrastructure for further reforms in the future.
