Federalism in the

Philippines

Emilio Aguinaldo and Apolinario Mabini intended the

Philippines to be divided into three federal states,
Luzon, the Visayas and Mindanao.
Luzon, the Visayas and Mindanao.

Federalism in the Philippines (Filipino:

Pederalismo sa Pilipinas) is a proposed
form of government in the country.

History
The concept of a federal government for
the Philippines was proposed as early as
the Philippine Revolution with Filipino
revolutionaries Emilio Aguinaldo and
Apolinario Mabini suggesting dividing the
islands into three federal states.[1]

One of the first proponents of federalism

in the Philippines in the 21st century is
professor Jose Abueva from the
University of the Philippines who argued
that a federal form of government is
necessary to more efficiently cater to the
needs of the country despite its
diversity.[2] The primary goals of a
constitutional amendment is to increase
decentralization, greater local power and
access to resources most especially
among regions outside Metro Manila
which has long been dubbed as rather
imperial.[3]

Aside from Abueva, senator Aquilino

Pimentel, Jr. is a prominent supporter of
federalism who, since 2001, has
advocated for federalism. He sees the
proposed system as a key component in
alleviating the Mindanao crisis and
appeasing Moro insurgents. According to
Pimentel, even though federalism was
never intended to appease any followers
of any specific ideology of religion, it will
also hasten economic development,
since resource and financial mobilization
is upon each state's or province's
discretion without significant constraint
from the central government.[4]

However, in 2009, after Senate and

House resolutions supporting charter
change were released, an estimated
13,000 to 15,000 people gathered in
Makati to protest against these executive
department-deriving proposals for
constitutional reform. This was due to
speculations that Philippine president
Gloria Macapagal-Arroyo would use such
amendments to extend her hold in
office.[5] In addition, Pulse Asia published
in the same year their survey regarding
public support for the proposed charter
change; the survey reported that four out
of ten Filipino adults, or 42% of all
respondents, opposed the amendment,
with 25% still undecided and 33% in
favor. Pulse Asia furthered that from
2006 to 2009 there was no significant
change of sentiment against the charter
change proposal, although indecision
increased by 6%.[6]
In late 2014, then-Davao City mayor
Rodrigo Duterte launched a nationwide
campaign calling for a charter change for
federalism. During his visit to Cebu City
in October of the same year, Duterte
stated that federalism will facilitate
better delivery of services to the
people.[7] He also saw the current system
as "antiquated"[8] where distribution of
public funds is disproportionately biased
towards Manila. Aside from the
economic aspect, federalism is also seen
as the best means to address problems
in Mindanao which suffers the most from
ethno-religious conflicts.[9] Duterte added
that the current unitary form of
government has not worked well given
the ethnic diversity in the country.[10] In
spite of initially rejecting several calls for
his candidacy for the 2016 presidential
elections, he cited his organizational
reforms if he were to become president.
Parallel to his campaign for federalism,
Duterte planned to privatize tax
collection and abolish the Congress to
make way for a unicameral legislature,
contrary to the originally proposed Joint
Resolution No. 10.[11]

Movements for federalism further

intensified from when the draft of the
Bangsamoro Basic Law was submitted
by Philippine president Benigno Aquino III
to the 16th Congress on September 10,
2014.[12] From approval, this law
establishes the Bangsamoro as an
autonomous region with its own
parliamentary government and police
force.[13] Approval of the Bangsamoro
structure would provide federalism
proponents and supporters added
confidence to clamor for the national
government to enact reforms towards a
more decentralized system for the rest of
the country.[8]

In May 2016, President-elect Rodrigo

Duterte stated that a plebiscite on the
proposed replacement of the unitary
state with a federal one will be held in
two years.[14] On December 7, 2016,
Duterte signed Executive Order No. 10
creating a consultative committee to
review the 1987 Constitution.[15]

Initiatives
Under President Gloria
Macapagal Arroyo

Joint Resolution No. 10

The resolution may require the revision of

14 of the 18 Articles of the 1987
Philippine Constitution and the addition
of two new articles. It sought to adopt a
federal and presidential form of
government with a bicameral legislature.
This proposed resolution was backed by
12 senators of the Philippines: Aquilino
Pimentel Jr., Edgardo Angara, Rodolfo
Biazon, Pia Cayetano, Juan Ponce Enrile,
Francis Escudero, Jinggoy Estrada,
Gregorio Honasan, Panfilo Lacson,
Francis Pangilinan, Ramon Revilla Jr., and
Manuel Villar[16]

In 2008, senator Aquilino Pimentel, Jr.

proposed Joint Resolution No. 10, which
would revise the current 1987
constitution and have created eleven
autonomous regions out of the Philippine
Republic, establishing eleven centers of
finance and development in the
archipelago.[17]
The proposal would result in the creation
of eleven "states" and one federal
administrative region.[18][19]
Proposed designations, capitals, and geog

States

Letter State

A Northern Luzon

B Central Luzon

C Southern Tagalog

D Minparom

E Bicol

F Eastern Visayas

G Central Visayas

H Western Visayas

I Northern Mindanao

J Southern Mindanao

K BangsaMoro
 Other

Letter Federal Administrative Region

M Metro Manila

Within the joint resolution are certain

proposals such as election of senators
based on states, senators representing
overseas voters and the state governor
and vice-governor as one team. The
Judicial and Bar Council which screens
nominees to the judiciary would be
abolished. Geographic locations of the
three branches of the government would
also be reconsidered. In the proposal, the
legislative department would be
transferred to what would become the
State of Central Visayas while the judicial
department would be moved somewhere
within the State of Northern Luzon. The
executive department would remain
within the federal administrative region
of Metro Manila.[20]
House Concurrent Resolution
No. 15

Rep. Monico O. Puentevella on May 7,

2008, filed House Concurrent Resolution
No. 15 which supported Senate
Resolution No. 10 backed by 16
senators. Unlike the Nene Pimentel
Senate Resolution, Puentevella included
the option of holding a constitutional
convention, but excluded the People's
Initiative mode.[21] Prospero Nograles, a
self-proclaimed advocate of federalism,
on May 1, 2008, announced: "This federal
system of government is close to my
heart as a Mindanaoan leader and I'm
sure most of the leaders in Mindanao will
agree that we have long clamored for it.
Senate Resolution 10 is a pleasant
surprise because the Senate has a long
history of opposing any move to amend
the Constitution."[22] The joint Senate
resolution called for the creation of 11
federal states in the country, by
convening of Congress “into a
constituent assembly for the purpose of
revising the Constitution to establish a
federal system of government.”

Under President Rodrigo

Duterte

Renewal of Pimentel's proposal

Federalism advocate, Aquilino Pimentel

Jr. renewed his campaign. In May 2016,
Aquilino 'Nene' Pimentel Jr., stated in an
interview with Teodoro Locsin Jr. and
Tina Monzon-Palma that a North
Mindanao state may be separated into
two distinct states, namely, Northwest
Mindanao and Northeast Mindanao.[23]

While Pimentel Jr.'s earlier proposal for a

Federal Philippines was to include the
area currently governed by the Cordillera
Administrative Region to the Northern
Luzon state, Pimentel mentioned on
August 2017 two possible setups for the
Cordilleras under a federal government at
the North Luzon Federalism Summit: An
autonomous Cordillera region within the
Northern Luzon state or the region as a
separate federal state from Northern
Luzon due to the existence of a long-
standing autonomy movement in the
region and a provision in the current
Constitution for giving the Cordilleras
autonomy. He also made the same
pronouncements during a live interview
with journalist Karen Davila.[24] After the
abolition of the Negros Island Region on
August 9, 2017, there have been several
regional movements driven by the
Negrenses in support of the unification
of the twin Negros provinces (Negros
Occidental and Negros Oriental) under
one federal state.[25][26]
In January 2017, under a federalism
forum, Pimentel clarified twenty-eight
points, namely:

(1) the Cordillera will have its own

federal state;
(2) the boundaries of Northern Luzon
state still needs to be clarified as the
state includes two distinct regions;
(3) Masbate will be included in the
Central Visayas state;
(4) the Northern Mindanao state shall
include the entire Zamboanga region,
the entire North Mindanao region
including Bukidnon, Agusan del Norte,
Butuan City, Dinagat Islands, and
Surigao del Norte;
(5) the Southern Mindanao state shall
include the entire Soccsksargen region,
the entire Davao region, Agusan del
Sur, and Surigao del Sur; /(6)
Minparom (Mindoro, Palawan,
Romblon, and Marinduque) shall be
classified as a Visayan state and not a
Luzon state as it is geographically part
of the Visayas, which Pimentel says is
"contrary to the beliefs of Imperial
Manila";
(7) the Bangsamoro state is the most
important as it is vital to peace in
Mindanao and Minparom;
(8) Shariah law can only be applied in
the Bangsamoro state if the two
parties are Muslims, but if one or both
parties are non-Muslims, national law
will always apply;
(9) Scarborough Shoal/Bajo de
Masinloc shall be part of Central Luzon
state through Zambales;
(10) the Philippine territories in the
Spratly Islands shall be part of
Minparom state through the
municipality of Kalayaan, Palawan;
(11) if the bicameral Congress is
retained, then the members of the
House of Representatives will voted
the same way as its is today;
(12) if the bicameral Congress is
retained, the members of the Senate
shall be voted, not nationally anymore,
but per state, where each state shall
have six Senate seats, the Federal
Capital (Metro Manila) will have six
Senate seats, and the overseas Filipino
population will have nine Senate seats,
for a total of at least 87 Senate seats,
which provides proper representation
to all states;
(13) the Supreme Court shall be
mandated to have a decision on a case
within 2 years from its filing;
(14) the Court of Appeals,
Sandiganbayan, and other appellate
courts shall be mandated to have a
decision on a case within 1.8 years
from its filing;
(15) the RTC shall be mandated to
have a decision on a case within 1.6
years from its filing;
(16) the City and Municipal courts shall
be mandated to have a decision on a
case within 1 year from its filing;
(17) each federal state shall have a
Federal Governor and Federal Vice
Governor; (18) each federal state shall
have a Federal State Legislature,
whose members members shall be
representatives from every province,
highly urbanized cities, and sectoral
groups;
(19) warlordism and political dynasties
shall be prohibited by the Constitution
itself;
(20) federal states shall have 80% of
their respective state's revenues, while
the federal government will only have
20%;
(21) an Equalization Fund shall be
created by the Constitution so that
federal states that are in dire need of
additional fund can be helped by the
federal government;
(22) there will be a unified educational
system, but the indigenous peoples
and Muslims shall be allowed to input
certain educational resources into their
educational system to better serve
their peoples;
(23) the Federal Executive Department
will hold office in the Federal
Administrative Region of Metro Manila;
(24) the Federal Legislature will hold
office in the Federal State of Central
Visayas;
(25) the Federal Supreme Court and
the Constitutional Court will hold office
in the Federal State of Northern
Mindanao;
(26) secession will not be enhanced
under the federal form of government
as it is a crime under the Constitution;
 (27) the Bangsamoro state shall be
divided into two autonomous regions,
namely, mainland Muslim Mindanao
and Sulu archipelago, as the two
Muslim areas are distinct from each
other in terms of culture; and
(28) the Philippines will include its
claim in Sabah under the federal form
of government. Pimentel, however, did
not clarify that the Philippines can only
claim the eastern half of Sabah.[27]

In January 2018, Pimentel suggested the

inclusion of the Malaysian-administered
territory of Sabah as a Philippine federal
state in itself to assert the Philippine
claim over the disputed territory in a way
"acceptable under international laws".[28]

In February 2018, under a new federalism

forum, Pimentel noted that new
information have been funneled in
regarding federalism in the Philippines
and the actual want and need of the
people in a federal form of government.
In the forum, he clarified and revised six
points from his initial forum back in
January 2017, namely: (1) the proposed
Northern Mindanao state may be divided
into the Northwest Mindanao state (the
entire Zamboanga region, Misamis
Occidental, Lanao del Norte, Iligan City,
Misamis Oriental, Cagayan de Oro city,
and Camiguin) and the Northeast
Mindanao state (Bukidnon, Agusan del
Norte, Agusan de Sur, Butuan City,
Dinagat Islands, Surigao del Norte, and
Surigao del Sur); (2) If the Northern
Mindanao state is divided into two
states, Agusan del Sur and Surigao del
Sur will shift into the Northeast
Mindanao state from the initially-
proposed Southern Mindanao state; (3)
The president and the vice president
shall continue to be elected through a
nation-wide election, but they must be
elected in tandem; (4) the qualifications
for president, vice president, and
members of Congress shall be the same
with the current Constitution, but with the
addition that the candidates must at
least have a bachelor's degree from a
college/university recognized by the
government; (5) the term of the elected
president and vice president shall be six
years without reelection; and (6) a former
president is not eligible to run for the
presidency anymore as the new
Constitution shall limit the term of a
president into one term only.[29]

Alvarez proposal

In 2017, House Speaker Pantaleon

Alvarez's vision for a federal Philippines
called for 14 states: 7 in Luzon, 2 in
Visayas and 5 in Mindanao. He also
proposed that the capital of the
Philippines under a federal government
should be somewhere in Negros island
saying that it would be accessible to all
people from the three island groups while
he added that the state's territory does
not have to be contiguous.[30] Alvarez has
hinted that the new capital may be
established between the towns of
Kabankalan, Negros Occidental and
Mabinay, Negros Oriental. Indigenous
groups are in favor of the proposal, but
are wary of the possibility of a 'no term
limit' for politicians, which is a grave
scandal in many Filipino indigenous
societies, especially in the Cordilleras. In
February 2018, Alvarez reiterated that he
shall input an indigenous state in the
Cordilleras in Luzon and an indigenous
state in Mindanao, whatever federal set-
up is approved by the President.[31]

Proposed states by Hous

Luzon Visayas

Bicol
Ilocos
Metro Manila
Eastern Visayas
Mimaropa
Western Visaya
Central Luzon
Southern Tagalog
Unnamed I.P. State (Igorot)
2018 House Sub-Committee 1
proposal

The Sub-Committee 1 of the House of

Representatives Committee on
Constitutional Amendments proposed
that a federal Philippines would comprise
five states. Each states to be led by a
premiere as its executive head will have a
State Assembly according to the
proposal. The proposal has been hit by
massive criticism due to general lumping
and a lack of representation. According
to the proposal, politicians will have
'more than' two consecutive terms,
making them eligible to run for office
with no term limit.[32]
 Proposed states and capital
House of Representatives Committee on Constitut
(Sub-Committee-1 proposal)[33][3

Metro Manila

Luzon

Visayas

Mindanao

Bangsamoro

League of Provinces proposal

In February 2018, the League of

Provinces of the Philippines (LPP),
whose members are the 81 provincial
governors, gave its support to the
country's shift to federalism, but stated
that the 81 existing provinces should be
converted into “independent states”,
instead of regional lumping.[35]

Con-Com proposal
Consultative Committee 2018 proposed ch

Federated regions (16)

National Capital Region (Metro Manila)

Ilocos

Cagayan Valley

Central Luzon

Calabarzon

Mimaropa

Bicol

Negros Island

Eastern Visayas

Central Visayas

Western Visayas

Northern Mindanao
Davao

Soccksargen

Caraga

Zamboanga

Asymmetrical regions (2)

ARMM (or Bangsamoro)

Cordillera

In April 25, 2018, the consultative

committee (Con-Com), created by
President Rodrigo Duterte to propose
revisions to the 1987 Constitution,
agreed that the starting point for the
federalism discussions will be the
establishment of 17 federated regions
and the National Capital Region, the
proposed federal capital region. The 17
federated regions will be Ilocos,
Cordillera, Cagayan Valley, Central Luzon,
Calabarzon, Bicol, Mimaropa, Eastern
Visayas, Central Visayas, Negros, Panay,
Caraga, Northern Mindanao, Davao,
Soccsksargen, Muslim Mindanao, and
Zamboanga.[37][38]

In July 4, 2018, the Consultative

Committee (ConCom) tasked to review
the Constitution unanimously approved
the draft constitution which would shift
the present government form into
federalism. Under the approved proposed
constitution, the Philippines will be
divided into 18 federated regions, where
the National Capital Region (which
initially was suppose to be a 'capital
region') will now be a federated region as
well.[39]

Tenure and eligibility for re-

election of incumbent officials

The draft constitution formulated by the

Concom 'allows the president to assume
all the necessary powers of government
– executive, legislative, and judiciary – to
prevent the breakup' of the proposed
federated republic, according to
Consultative Committee chairman
Reynato Puno.[40][41] An July 6, 2018, it
was revealed by ConCom member Julio
Teehankee that under the proposed
federal constitution, Duterte and Vice
President Leni Robredo may run again for
president for two consecutive terms or
an additional 8 years in office after 2022,
paving the way for a possible 14 years in
office.[42]

This was met with opposition from some

critics, including lawyer and former
Solicitor General Florin Hilbay and Albay
province Rep. Edcel Lagman.[43] It was
feared that the proposed charter would
enable an authoritarian regime similar to
that of Ferdinand Marcos during the
Martial Law era. Hilbay found it
suspicious when a copy of the draft
charter was leaked by an unknown
source, which the commission said was
"not final". In a statement, he said that
the proposed constitution was “overtly
designed to secure, if not coerce, popular
anointment of the Consultative
Committee’s handiwork which was
approved without the benefit of prior
extensive local consultations.”[44]

Later however, Teehankee stated that he

"misspoke" during the interview, saying
that the president and vice president are
barred from running, and assured that
their terms will not be extended, referring
to Section 16 of the draft charter, which
was not yet available to the public at that
time.[45] In contrast, Concom member
and former senator Aquilino Pimentel Jr.
said, “Theoretically it is true (Duterte can
seek re-election), but in Digong’s case, I
am convinced that he does not want to
run again. He has been saying that once
it is approved, he will resign.”[46]

Rodrigo Duterte has also announced that

he had no intention to serve beyond his
term, and that he is willing to step down
earlier than 2022, in case the shift to
Federalism pushes through. He then
asked the Consultative Committee to
include a provision that prevents him
from seeking re-election, which was
subsequently added by the
Concom.[47][48][49]
Public opinion and
awareness
Generally, Filipinos' stance on a shift to
federalism is mixed. These are reflected
by nationwide opinion polls conducted by
Pulse Asia and Social Weather Stations
(SWS). By the end of March 2018, 37% of
Filipinos agree, while 29% disagree, when
asked if they are in favor of a federal
system of government, based on a
survey of 1,200 adults aged 18 in above
by SWS.[50] Opposition to Charter change
(cha-cha) went up from 44 percent in
July 2016 to 64 percent in March 2018,
and the opposition to federalism went
the same way, except by a larger margin
—from 33 percent to 66 percent.[51]

Meanwhile, in June 2018, a Pulse Asia

poll answered by 1,800 respondents
yielded with 67% being against charter
change.[52][53] Support and awareness for
federalism is strongest in Mindanao and
within the Filipino Muslim
community.[54][53][50]

The Philippine government cites lack of

information as the reason for low public
support. Presidential Spokesperson
Harry Roque stated that, “For this reason,
we cannot expect our people to support
an initiative, which they know only little
about. There is clearly much work to be
done in terms of spreading awareness
and knowledge on the aforementioned
issue." The Philippine government has
repeatedly presented its intention to drive
up its effort to educate Filipinos about
federalism.[55][56]

Position of parties on Federalism

The ruling political party Partido

Demokratiko Pilipino-Lakas ng Bayan
(PDP-LABAN) is currently the main and
strongest advocate of federalism in the
Philippines.[57][58][59] PDP-Laban currently
only allows pro-federalism politicians to
be admitted to the party.[60] In contrast,
the opposing Liberal Party is mostly
against the movement. Incumbent Vice
President Leni Robredo, who is the
current party leader, has expressed her
opposition towards charter change and
federarlism.[61][62] This sentiment is
shared also by various opposition
senators and representatives, including
Senators Francisco Pangilinan and
Antonio Trillanes IV.[63] Left-wing political
parties such as the democratic socialist
Akbayan and the more radical Bagong
Alyansang Makabayan have also voiced
disapproval against charter change.[64]

See also
Federal State of the Visayas
Bangsamoro (political entity)
References
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2. Brillantes, A. B.; Moscare, D. (2002).
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3. Abueva, J. V. "Towards a Federal
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country from the stifling, centralized,
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(PDF).

4. Abueva, J V. (2005). "Some advantages

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5. "Thousands march in Makati vs. charter
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6. "42% of Pinoys oppose charter
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set-wants-sabah-included-philippine-
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http://mindanao.politics.com.ph/alvarez-
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34. Manalastas, Jestre (16 January 2018).
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37.
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proposed-federal-constitution.html
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External links
Press release: Pimentel files resolution
on federal system , Senate of the
Philippines, 14th Congress, April 23,
2008, retrieved 2008-04-25
Aquilino Q. Pimentel, Jr.; Egardo
Angara; Rdudolfo Biazon; Pia
"Compañera" Cayetano; Juan Ponce
Enrile; Francis "Chiz" Escudero; Jinggoy
Estrada; Gregario Honasan; Panfilo
lacson; Francis Pangilinan; Ramon
"Bong" Revilla; Manuel "Manny" Vilar
 (23 April 2008), Joint Resolution No.
10: A Joint Resolution to convene
Congress into a Constituent Assembly
for the purpose of revising the
constitution to establish a federal
system of government (PDF), Senate of
the Philippines, retrieved 2008-05-13

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