Centralism vs. Federalism in Philippines

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.

Decline Under Marcos

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Magsaysay Era in the Philippines

From The Making of the Modern Philippines: Pieces of a Jigsaw State, by Philip Bowring (Bloomsbury Academic, 2022), Kindle pp. 60-62:

Magsaysay was dynamic, reorganizing and enlarging the army, improving discipline and reducing corruption. He exuded a man of the people image, meeting peasants and joining troops on operations. His close links to the US was not an issue for most Filipinos, Huk-leaning peasants included, who were still grateful to The US for helping rid them of the Japanese. He acknowledged peasant grievances and talked of land reform, increased crop shares and offers of free land in Mindanao. Copious US funds brought clinics, roads and services to poor villages. Lansdale was a behind campaigns to discredit the Huks, frighten their peasant supporters with psywar propaganda and use money and the media to highlight the positive. Those measures were at least as important as the military ones. Gradually, the tide turned against the rebellion which remained focused on Central Luzon despite Huk efforts to develop movements in Bicol, the Visayas and Mindanao.

By the time Magsaysay became president, the Huks were weakening, their forest camps threatened by Magsaysay’s troops. They were short of arms and divided ideologically between urban mostly well-born idealist Communists, several of whom were arrested, including the party boss, Jose Lava, as well as Taruc and his men in the field. Many peasants felt they had been heard and that conditions were being ameliorated. The rebellion faded, particularly after Taruc’s surrender following negotiations with Magsaysay’s envoy and a young well-connected journalist, Benigno Aquino Jr. The son of a leading collaborator he was to use the resulting fame to propel his own political ambitions.

Magsaysay was very much America’s man in foreign policy, the Manila Conference of 1954 creating the South East Asia Treaty Organization – a US-led anti-Communist alliance. He also declined to join such giants of anti-colonialism as Nehru, Nasser and Sukarno at the Afro-Asian Bandung Conference in 1955, though he did agree to send foreign secretary Carlos Romulo. Magsaysay’s clout in Washington enabled the nation to re-visit some of the provisions of the odious 1946 Trade Act. Jose Laurel represented the Philippines in negotiating what was known as the 1955 Laurel-Langley Agreement. This freed the Philippines to set its exchange rate against the US dollar and significantly improved trade access to the US through preferential tariffs and quotas. In particular, it benefitted sugar producers now able to sell in the US at a higher price than the world market. Parity rights for Americans were maintained but the Agreement was to expire in 1974. Also in 1955, the Philippines finally reached a reparations agreement with Japan, providing $550 million and a promise of another $250 million in private sector investment.

The flow of US money was the first key to a rapid recovery of the economy, even if it was mostly evident in Manila and a few other cities. Japanese reparations followed with private US investment arriving to take advantage of its privileges. The nation was seen as the most likely to prosper in the region because of its mix of education, access to the US and relatively stable political outlook. Indeed, from 1950, when its GDP per head was already higher than Japan, Taiwan, Korea and Thailand, it had the region’s highest annual GDP growth rate of 6.5 per cent.

Magsaysay died in a plane crash in Cebu in March 1957 and was automatically succeeded by Vice-President Carlos Garcia. He had served as Foreign Secretary under Magsaysay and was identified as a pro-American anti-communist, chairing the 1954 Manila Conference which saw the creation of the South East Asia Treaty Organization. One of his first acts in office was to sign a law making the Communist Party illegal, but in other respects he was a staunch nationalist who resented foreign commercial domination, a reference to the local Chinese as well as to the US interests. Garcia was elected President in late 1957 as a Nacionalista with 41 per cent in an election with several prominent candidates, but his running mate, Jose Laurel, the son of the president appointed by Japan, lost the vice-presidency to Diosdado Macapagal of the main opposition Liberal party. The Nacionalistas controlled Congress, with a representative from Ilocos, Ferdinand Marcos, as the minority leader.

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The creation of an indigenous capitalist class was a natural goal and one pursued elsewhere in Asia. However, it rested on three pillars: one was the landowning elite who used their resources, wealth and political clout to expand their economic role but were not natural entrepreneurs; the second was the Chinese who, evading laws to deter them, managed the shift from middle-man role to into newer manufacturing industries; the third was the state, supposedly in command but without institutional roots, short of funds and at the beck and call of politicians and rent seekers. The policies did have the effect of bringing more local investment into protected manufacturing. The anti-Chinese Retail Nationalization Act in the longer run helped the Chinese by forcing them out of retailing into manufacturing, whose percentage of GDP rose from 10.7 per cent in 1948 to 17 per cent in 1960.

Philippines Under Japan

From The Making of the Modern Philippines: Pieces of a Jigsaw State, by Philip Bowring (Bloomsbury Academic, 2022), Kindle pp. 51-54:

At least initially, few of the elite saw reason to confront the Japanese. A majority of senators joined the Executive Commission; others kept a low profile. A few were enthusiastic, including Laurel who admired Japanese order and devotion to the nation. Laurel could reasonably claim that some cooperation with Japan was necessary for the good of the people. Accepting the Presidency of the supposedly independent republic, however, was another matter given that the elected president and vice-president had a government-in-exile in Washington.

Another key collaborator was Benigno Aquino, a lawyer and landowner from Tarlac, who had been Secretary for Agriculture under Quezon. The Japanese made Aquino head of a new appointed assembly, known by the acronym Kalibapi (the Association for Service to the New Philippines). Also banging the drum for Japan was the MaKaPili, the Patriotic Society of Filipinos, led by former Sakdal leader Benigno Ramos. Former revolutionary general, Artemio Ricarte, who had always refused allegiance to the US, returned in late 1944 after thirty years in exile in Hong Kong and then Japan. Even Emilio Aguinaldo resurfaced, urging close cooperation with Japan.

Spanish citizens, who were still numerous and influential as priests or from the old elite, were divided. Many had supported the Falangists during the Spanish Civil War and were thus prone to be sympathetic to Japan, but Andres Soriano of the giant A. Soriano Corporation stuck with Quezon as a member of his cabinet even though he had been the local leader of Spain’s Falangists. Others played an equivocal role. Manuel Roxas, who Quezon originally favoured as vice-president over Osmena, was captured by the Japanese and became an adviser to Laurel. The Japanese hoped to make him president in 1943 rather than Laurel but he declined. Late in the war Roxas may have provided intelligence to the Americans.

Whatever its notion of Asia for Asians, the occupation had several problems which fed on each other. The first was the arrogant and often brutal behaviour of the Japanese military for whom easy-going Filipino ways were alien. There was also a demand for comfort women for the soldiery, for which there was little local consent. Second was the quest for raw materials by Japan, combined with the inevitable shortages of a wartime economy shorn of foreign trade. The Japanese needed local resources to feed a 400,000-man army in the Philippines. Food shortages and unemployment were caused by Japanese demands for materials and the collapse of export industries which had been focused on the US market. A third factor was that antipathy towards the Americans was found more among the elite than lower down the social order where the US was associated with progress and aspiration. In exile, Quezon and Osmena provided a focus for resistance, there was pride in the Filipinos’ sacrifices in Bataan, and before long an expectation that the Americans would return.

Guerrilla activity developed, in many cases led by former soldiers, and provided some support brought by American submarines. As only Americans could defeat the Japanese, many Filipinos now longed for their return, past sins forgiven. They provided information and help to the Americans while appearing to be loyal to the puppet government. As resistance grew, so did reprisals and fear of the kempeitai, the Japanese military police. Disorder reigned too with some supposedly anti-Japanese activity becoming a cover for settling feuds between rival families. The resistance spawned many heroes but also, in the aftermath, many bogus claims to it. The most significant resistance, at least in the longer term, was provided by the Hukbong Bayan Laban na Hapon – the People’s Anti-Japanese Army – or Huks in Central Luzon, heart of rice and sugar cultivation, and of big haciendas. Feudal and paternalist tenancy systems, which at least provided stability for families, had been significantly replaced by sharecropping and small farmers, reduced by debt, into becoming wage labourers. As anti-landlord as it was anti-Japanese, some of the movement’s leaders drew inspiration from Mao Zedong. The movement was headed by Luis Taruc, a protégé of early nationalist and convert to Marxism, Pedro Abad Santos, brother of the Chief Justice. Taruc, who had been a full-time peasant organizer for the Socialist, then Communist, Party since 1934, was the leader of several thousand members from the sharecropper and landless workers, mainly in Bulacan, Nueva Ecija, Pampanga and Tarlac. The Huks were, however, predominantly a peasant organization born of injustice more than ideology.

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Post-war tales of Japanese atrocities and Filipino suffering during the occupation helped provide a focus for the nation in the early years of independence, which finally occurred on 4 July 1946. Yet not far under the surface of this massaged history was the reality that the elite recognized. There was little instinct for retribution against collaborators. Aquino was charged with treason but released on bail and died the following year. Laurel was likewise charged with treason but never tried. In 1948, as President, Manuel Roxas, whose own cooperation with the Japanese remained questionable, declared an amnesty. Only five years later, Laurel stood unsuccessfully for president as the Nacionalista Party candidate winning 37 per cent of the vote. The victor was Elpidio Quirino who, despite the deaths of many family members in the Battle of Manila, pardoned the Japanese convicted of war crimes. Vargas went from the puppet republic’s ambassador in Tokyo in 1945 to head of the National Planning Commission in 1946.

Whatever mixture of class solidarity, family relationships, Catholic notions of forgiveness or common nationalism, the quick post-war healing was in sharp contrast to experiences in many other countries occupied during the 1937–45 wars. There were also cross currents. Lingering Spanish and Church sentiments were in favour of the Spanish dictator, General Franco, as a bastion against atheistic communism and hence highly critical of the anti-clericalism of leftist nationalists. Those with Chinese affiliation, on the other hand, were influenced against Japan by its invasion of China. Nationalists came in different colours with some interested in sustaining the status quo but without the Americans. Only those on the far left were consistent in being anti both Japanese and US imperialism and even they were sometimes divided between middle class Marxist revolutionaries and rice farmers fighting landlords.

Rise of Religious Nationalism in Philippines

From The Making of the Modern Philippines: Pieces of a Jigsaw State, by Philip Bowring (Bloomsbury Academic, 2022), Kindle pp. 29-31:

The nineteenth century saw a sustained clash between the religious needs of the Filipinos and the colonialist views of the Spanish Church, the friars in particular. Nationalism had its roots in this conflict.

Tension between the Spanish-led Church and peasant Catholics led to the creation of the all-Filipino Cofradia de San Jose in Central Luzon by Apolinario de la Cruz, better known as Hermano Pule, who had wanted to join the Dominican order but was barred because of his race. Becoming a lay preacher, he and a Filipino priest established the Cofradia de San Jose, attached to a hospital. It gradually attracted several thousand followers and only admitted Spanish and mestizos personally approved by Pule. It combined Catholic teaching with some pre-colonial ideas. Refused recognition by both State and Church, it was seen by the governor-general as implicitly political and was violently suppressed. In a battle with followers, troops killed several hundred and Pule and other leaders were captured and executed; Pule was just twenty-seven years old. Madrid was shocked and eventually the Supreme Court admonished the governor-general saying the Cofradia was not political but had merely committed an ecclesiastical offence, but the damage had been done.

The country was in the curious position of having become devout believers in Christ while increasingly despising the Church’s principal agents the friars, the mendicants who had grown rich and greedy. In 1858, a British visitor was entertained to a dinner which would have ‘satisfied a Parisian gourmand’ meanwhile also noting that local Spanish ‘newspapers were more pre-occupied with the lives of saints than the most stirring events of the political world’.

At the same time, the Church saw growing divides between its mostly Spanish clergy and both the local priests and their flocks. The government did make efforts to extend primary education with its own schools in addition to the clerical schools but with a focus on teaching Christianity. The friars tended to ignore government demands that they teach Spanish to the Indios fearing that it would give them access to new, often secular, ideas.

In 1870, of 792 parishes, 611 were administered by the orders while the rest were controlled by secular priests, most of whom were Filipinos. The confrontation between the two sparked a surge of local identity. Political swings in Madrid exacerbated issues as a liberal governor was replaced by a conservative. A minor uprising in a Cavite shipyard was used by the government, egged on by the friars, to accuse three outspoken local priests – Fathers Burgos, Gomez and Zamora – to be tried for plotting rebellion and executed. Others were imprisoned or exiled to the Marianas. Well-to-do supporters exiled themselves to Spain.

The deaths of the three priests were a landmark. Burgos, the son of a Spanish officer and a local mestiza, was highly educated, so too were Gomez and Zamora, mestizos educated at the University of Santo Tomas. All deeply resented the inferior position of the non-Spanish clergy.

This episode fuelled the wrath of an upcoming generation of prospering new class of mestizos, elite Indios and creoles (local born Spanish) who could be educated in Europe but who at home felt the heavy hand of racist officials and the Guardia Civil. From this elite, known as ilustrados (the enlightened) emerged the Propagandists, a movement aiming not for independence but for equal treatment as citizens and representation in the Cortes (parliament) in Madrid as Cuba and Puerto Rica had been given. They also demanded the ending of the friars’ role in government, their replacement by local priests, more mass education, the curtailment of foreign – notably Chinese – economic power and a fairer tax system – the Spanish did not pay tax.

Gathering gradual momentum from 1880, by 1889 the movement was embedded among young ilustrados in Spain who published La Solidaridad, a fortnightly newspaper. The names of those involved are celebrated by street names throughout the country – Marcelo del Pilar, a lawyer, who wrote tracts in Tagalog as well as Spanish, Mariano Ponce, Juan Luna, a painter, and his brother Antonio, a future general, but most noted even then was Jose Rizal, a mestizo from Calamba near Manila whose elder brother had been a friend of Father Burgos. Rizal, a name he adopted, was fluent in several languages, a medical doctor and a writer whose first novel, Noli Me Tangere published in 1887, was a searing attack on the regime in Manila and on the friars.

Manila in Global Trade, 1600s

From The Making of the Modern Philippines: Pieces of a Jigsaw State, by Philip Bowring (Bloomsbury Academic, 2022), Kindle pp. 25-26:

Despite the best intentions of some Spanish officials and priests, the overall low standard of Spanish rule was exacerbated by the conflicts of interest between State, clerics and encomenderos. This was acknowledged at the time by officials on the ground.

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Manila was a different story. As the main focus of Spanish rule and source, it soon acquired walls, stone buildings and a cathedral. The city flourished from the galleon trade established very soon after the conquest. Ships from Mexico brought silver, while traders arrived from China and Japan, and a few from Melaka and elsewhere, to sell luxury goods, spices etc. for silver. The trade was immensely profitable for the Spanish merchants in Manila and the growth of the city attracted thousands of Chinese workers in addition to traders. Chinese generally became known as ‘sangleys’ – derived from the Hokkien word for trader, a name still reflected today in Sangley Point, the little peninsula jutting out into Manila Bay and the location of a small US-built airport. Some Augustinian friars learned Hokkien and converted some Chinese to Christianity.

By 1603, there were far more Chinese – about 30,000 – than Spanish. Tensions rose to the point that the Chinese, fearing they were about to be forced back to China, revolted and had initial success. However, they were inadequately equipped and had to retreat to a camp in Batangas where they succumbed to a force of some 200 Spanish, 300 Japanese and 1,500 locally recruited men. The Chinese had appealed to their emperor for help but Ming China was unsympathetic to those who betrayed their country by settling abroad. About 20,000 Chinese were massacred. The emperor threatened the Spanish with retribution but did nothing. Trade was interrupted but only briefly.

Another impact observed by de Morga was the shortage of skilled manpower. Due to the influx of low-cost Chinese labour, the Indios had ‘forgotten husbandry, the rearing of fowls, flocks, cotton and weaving robes as they used to do in the time of their paganism and for a long time after the country had been conquered’.

The Chinese gradually returned to Manila so that they numbered 25,000 by 1636 but they were again the subject of killings in 1639 following a minor rebellion by Chinese relocated to the countryside outside Manila to grow rice. The Chinese and Spanish needed each other but the relationship was always uneasy due to Spanish (and some indigenous) fears of Chinese numbers. Although most were in Manila and major towns and dominated the retail trade and crafts, some did move to rural areas as petty traders and money lenders.

The galleon trade was very profitable for those involved in it and a right to space on one bound to Mexico one was highly valued. Two vessels a year usually made the journey – two out, two in. Losses at sea were quite small – twenty-six out of a total of 108 galleons over the 250 years. Most of these occurred in the vicinity of the archipelago, particularly the tricky passage from Manila to the open Pacific via the San Bernardino Strait between Luzon and Samar. Four vessels were seized by the English.

The flow of silver into China gave a major boost to its money supply and other trade, domestic and foreign. It is sometimes described as the first globalization, though in reality Manila was involved with little other than the galleon/China trade as trade with Europe via the Indian and Atlantic Oceans was controlled by others. Merchants from ports such as Melaka brought goods such as cottons, carpets and spices from India, to join the cargoes of Chinese and Japanese products, but Manila merchants did not go west. The galleons were the property of State which controlled access to space, which enriched officials. A committee headed by the governor and including the head of the audencia (supreme court) and representatives of the Church, city council and leading merchants allotted boletas, tickets providing a certain amount of cargo space on a galleon. These were not supposed to be traded but gradually the boletas became saleable to genuine merchants, at a price. By the eighteenth century, the system had become an income subsidy for a large part of the Spanish population, at the expense of the genuine merchants.

The galleon trade also existed within a bigger restrictive system which aimed to protect other production and trade interests of Spain and its American possessions. These necessarily were sometimes at odds with each other but in any case kept foreigners out of any non-Asian trade. Meanwhile, the Dutch and English grew fat on their Europe-Asia trade with which Spain could not compete effectively.

The galleons did little for the domestic Philippine economy or trade with other parts of Asia. Indeed, it took away the incentive for the local Spanish to develop the economy. There was little trans-Pacific export of local products. Over time some Filipinos settled in Mexico, having arrived as galleon crew.

Modern Philippines: A Jigsaw

From The Making of the Modern Philippines: Pieces of a Jigsaw State, by Philip Bowring (Bloomsbury Academic, 2022), Kindle pp. 1-3:

In March 1521 three ships under Ferdinand Magellan (Magalhaes/Magallanes), a Portuguese navigator in the service of the king of Spain, landed in the Visayan islands. One ship later completed the first circumnavigation of the globe, an event for the history record books but more importantly it changed that history of the islands, now home to 110 million people. A few decades later, Spain assumed ownership of the archipelago stretching from the Luzon Strait to the Sulu Sea and named it Islas Filipinas. The Spanish left a religion, a few genes and some aspects of culture, but the people were and remain predominantly of Malay/Austronesian race, language and culture, albeit with other influences from America and China.

The Philippines is unique in many ways; its geology, its fauna, in its history of rule by two successive Western powers, Spain and the United States. It has been a political identity with a singular name for nearly 500 years, much longer than many of its neighbours. It is the only predominantly Christian nation in Asia south of the Caucasus and is fervently Catholic. In the nineteenth century it spawned the first modern nationalists fighting Western imperialism.

However, this singularity does not make for an identity which is readily understood even by its own citizens, let alone by foreigners. It is part of the vast Malay Archipelago and shares a basic language and some culture with its Indonesian and Malaysian neighbours but it is separated from them by 500 years of history and itself divided by fragmented geography and regional loyalties. That history explains its current problems as reflected in its weak post-1945 economic and social performance compared with most of its neighbours, and its continuing high levels of violence. Democracy flourishes, elections are regular, noisy and competitive yet little progress is made towards changing a system dominated by dynasties as seen in the contests in the 2022 election. After the grip of two distant empires, Spanish and American, it now lives under the shadow of another, closer one, China.

Geology divides it into more than 2,000 inhabited islands. Regional rivalries and the widespread but not universal use of English have thwarted the acceptance of Filipino (essentially the Tagalog of Central Luzon) as the national language. Regional languages and loyalties remain strong so that imported languages and the Church seem at times the main unifiers. It is also an administrative jigsaw in that power locally lies not with its geographically coherent seventeen regions but with eighty numerous provinces and cities with province-level powers, some very small.

A basic Malay culture has been so influenced by Spain, the Catholic Church and then by America that its identity is sometimes seen as Latin as much as Asian. Indeed, many Filipinos in California, where they are the second largest Asian community, often self-identify as Latino or Pacific islander not Asian. The Catholic Church, as adapted locally, provides some common bond, other than for the Muslims, but faces its own challenge from evangelicals and populist preachers. Religious division is an underlying historical reality exacerbated by the concentration of Muslims in western Mindanao and Sulu and more recently by extremist Islamism from abroad. Yet the cultural roots and language, even aspects of its politics, remain essentially Malay from Ilocos in the north to Sulu in the south. However, fragmented by religion, local languages and quasi-tribal identities, the Philippines is at once identifiable yet hard to define or describe.

The very notion ‘Filipino’ began with local born Spaniards, known as creoles, and only very gradually spread to Spanish mestizos, Chinese mestizos and urbanized indigenous people accepted into the dominant principalia class. The nationalism of the ilustrados (the reformist educated elite) in the late nineteenth century raised national consciousness and the struggles against America and Japan saw mass participation. Independence brought the masses into the Filipino embrace but despite shared urbanization and education, the sense of national identity developed fitfully. Added to the centrifugal forces of geography were the strength of elite links to the US and of many leading businessmen to China. Suggestions to change the colonial name to a Malay one have failed – many late nineteenth revolutionaries preferred ‘Katagalugan’, which became the name of a short-lived Tagalog republic. More recently ‘Maharlika’, a word denoting a Tagalog noble warrior class, has been suggested but attracted little support.

Five hundred years on from the arrival of Spain and Catholicism fissures remain. Muslim Mindanao’s on and off warfare has been about local rivalries as well as opposition to Manila and Christianity. Meanwhile, non-Muslim parts of the island also continue to see conflicts, mainly over land rights between local ethnic groups, particularly in Mindanao and the broader population whose composition has been changed by decades of migration from the Visayas. That internal colonization continues. Visayan languages now predominate in Mindanao. Generally, regional loyalties and in political terms local patron-client relationships remain important. They remain crucial even if weakened by urbanization and the shared identity of the millions of Filipinos now working overseas or brought together via social media such as Facebook or by international beauty pageants. National politics is still partly driven by the regional appeal of particular candidates. Local identity is mostly stronger than national identity, perhaps a reflection of the lack of esteem of the national government.

After years under a backward Spain and the aegis of friars, American imperialism brought education and new legal and administrative systems. Seventy years ago, the then recently independent Philippines boasted higher literacy levels than most of Asia and the highest income levels of populous Asian countries apart from Japan. It had an admired – at least from a distance – US-inspired legal and democratic system. Today, despite two decades of reasonable economic performance, it is widely seen as having failed to match most of its neighbours in income growth and progress in education. It remains better known for natural disasters, flamboyant leaders, political violence and sporadic insurgencies, and for its major export – its own citizens finding work abroad which they could not find at home.

Its social structure has changed only modestly over time, with huge gaps in income and wealth, the dominance of certain families, particularly in the provinces, the preference for the fairer skins of mestizos (European or Chinese) and even place names celebrating colonialists, for example the posh enclaves of Makati – Magallanes, Forbes, Legazpi, Urdaneta and Dasmarinas. Violence is an all too constant ingredient in politics. President Duterte’s so-called War on Drugs killed particularly large numbers. Killings of political rivals, critical journalists and of farmer and worker activists had long been common but accelerated dramatically under Duterte. Lawyers abound but the state of law and order varies widely, ever subject to political and pecuniary influences. The state structure is weak for historical and geographical reasons which partly explain the persistence of insurgencies and of dynastic politics at both national and local levels. Senses of nationalism and civic duty appear weak compared to the demands of kinship and client relationships, blurring lines between public and private spheres. These features have especially flourished under the de-centralized political system and weak central bureaucracy bequeathed by America. Trading and sailing have always been essential elements of economic life and smuggling a natural outcome of attempts to tax it.

However, the nation has strengths too. Filipinos may be divided among themselves at home but in the outside world they have an identity and solidarity that is strong and recognized as such. Gender equality is ahead of most of Asia; Filipino workers are valued overseas for their skills and commitment, and command of English carries global benefits. Its Catholicism is sometimes more about ritual than ideology and society has relatively few hang-ups about racial mixing born of centuries of practice and the more recent impact of migration. It is welcoming of foreigners and renowned for its love of music and fiestas. There is a tradition of free speech – and sometimes gaudy rhetoric – and a media which is often too lively for those in power. In the much longer run, a generation or two away, its high fertility rate, which has long been a burden, will in a generation prove a bonus as most of its neighbours face ageing and falling populations. One day the nation may even acquire a name which reflects its Malay core identity.