Federating through parochial diversity

IT is very rarely pointed out in the discourse on shifting to a federal form of government but one of the main aims of federalization is to preserve the integrity of a state with a diverse population. This aspect of the federation process is certainly true for the Philippines.

As best illustrated in Mindanao, the native inhabitants of our land have always been historically divided into sub-ethnic groups with each having their own dialect, traditions and rituals. Indeed, until the Spanish arrived only autonomous tribal groups distributed among pockets of villages and hamlets existed in these islands.

Notably, diversity in the Philippine islands still exists today. Our indigeneity still runs deep despite other peoples’ view that we have become too Hispanized, Americanized, or Westernized. Indeed, we often lament the strong native regional loyalties still apparent among Ilokanos, Ifugaos, Tausugs, Ilonggos, Cebuanaos and so forth.

The fact is centuries of colonization, globalization and the internet all have failed to homogenize Filipino identity.

But this is not a bad thing at all. As cliché as it sounds, the fact that Filipinos have become a nation-state of diverse peoples is something to celebrate.

More importantly, the recognition of our various indigenous identities should never equate to the fragmentation of the Philippine state along ethnic or religious divides.

National unity and regional diversity are not mutually exclusive realities. In fact, all Filipinos, of whatever aboriginality, are equally responsible over matters affecting the nation.

Curiously, there is currently no state institution in place where genuine regional representatives can collectively address issues and policies involving the progress and prosperity of the country as a whole.

The House of Representatives is not such institution because Congressmen do not exactly bring the “regional” view onto the national stage. This is evidenced by their predilection in passing laws creating economic zones in their bailiwicks, transforming municipalities in their districts into cities and naming streets and public schools therein after their ancestors.

In other words, members of Congress approach their mandate as simply about satisfying local concerns.

Representing their constituency in discourses involving matters of national significance is at the bottom of their agenda. For some, it is not even part of their agenda at all. So the House of Representatives is not a state mechanism that can institutionalize genuine solidarity within the republic.

I submit however that Congress can create such an institution. Lawmakers can enact legislation to create an independent economic and planning agency which represents the depth and breadth of Filipino diversity under

Section 9 of Article XII of the Constitution. For example, the governing body of the current National Economic and Development Authority could be re-organized to be comprised of provincial representatives appointed by the governor for a fixed term.

However, for this office to effectively function as the national congregation of the various communities in the country, it should not be a mere advisory council. It should be designed to have legitimate policy-making functions as well.

Additionally, Congress can also pass a law regionalizing the composition of the Senate. There is nothing in Sections 2 and 3 of Article VI that prevents lawmakers from pushing for this groundbreaking reform.

Obviously, all the mandated qualifications and the manner of election shall remain the same. The only change shall pertain to the number of electable positions being proportionally divided among the regions.

For example, while candidates shall still be elected at large, a third can be required to come from Mindanao, a third from the Visayas and a third from Luzon. Organized this way, the Senate becomes a national body that is not dominated by Filipinos from a particular region. Rather it will be an institution with a nation-wide mandate but wherein authentic regional representation would be palpable and guaranteed.

It must be emphasized however, that the purpose in legislating for either of these institutions is to guarantee that local voices are represented in promoting national interests. To ensure that important national policies are formulated through a deliberative process whereby the views and insights of the regions are duly considered.

For with such a mechanism in place, a genuine sense of ownership over crucial policy decisions made by the national government as well as a collective commitment to their successful implementation would likely emerge from within the polity.

Most importantly, given the collective spirit imbued in these proposed offices, its influence in the management of government could also diminish the domination of certain sections of the population, as well as particular geographical areas of the country, in matters pertaining to the nation’s socio-economic development.

Indeed, before we even get serious in contemplating a shift to a federal form of government, the fact that the state functions for all Filipinos must be firmly entrenched in the national psyche.

Additionally, advocates must always keep in mind that the federalization process is not just about the devolution of political and fiscal powers to the sub-national level, but it is also about clearly defining a shared responsibility between the two tiers of government for shaping the future of the whole country.

This idea is already reflected in Section 2 of Local Government Code where it is explicitly expressed that “the territorial and political subdivisions of the State shall enjoy genuine and meaningful local autonomy to enable them to attain their fullest development as selfeliant communities and make them more effective partners in the attainment of national goals.”

Therefore, it is imperative that the public institutions suggested here be given serious consideration for not only can they facilitate a genuinely coherent and inclusive nation-building effort, but they can also put us on the proper path to federalization.