Seminar in Political Parties, Elections, and Interest Groups (PA 261)

The Role of Small Parties in the Philippines: The Case of Akbayan

In partial fulfillment of requirements in PA 261

Submitted to

Dr. Olivia Caoili

Submitted by

Lorena A. Fernandez

March 19, 2008

Parties, Small Parties, and Proportional Representation

Parties are groups characterized by their purposive intent to influence and

possibly define politics, and are organized to mobilize electoral support to achieve
governmental power. To achieve its purposes, a party should be structured to have a
concrete base of membership and resources while not being limited by the interests of
its members and financiers. Similarly, party platforms must be focused to give a sense of
identity yet general in scope to provide room for practical compromise.
Small parties are groups that do not belong to the parties which gained the
highest votes, and are usually constrained by limited campaign finances. But small
parties are not without purpose. Though small parties have limited resources, they
provide representation to non-elites, and raise issues and agenda from the perspective
of the middle class and the masses. Recognizing their importance, twenty-nine (29)
countries have adopted proportional representation (PR) in their electoral systems to
enable non-traditional interests and marginalized groups to gain seats in the
Parliament1. According to Duverger (1963), this has had a multiplying effect that
naturally leads to the rise of small parties 2.
Though there are many variations of implementing a PR system, the primary
electoral procedure consists of providing minimum thresholds for parties to get seats.
This is carried out by asking voters to choose among parties rather than candidates. To
be sure, it is easier to obtain seats under PR since parties need not win the majority or
the popular vote.

The Party System in the Philippines

1

Fernandez, Book Review of Electoral Systems; A Comparative Introduction by David Farrell, January 30,
2008, 4.
2
Maurice Duverger, Political Parties; Their Organizations and Activity in the Modern State, Trans,
Barbara and Robert North, N.Y.: John Wiley Science Editions. 1963, 253,

Since 1987, the Philippine government has been run by coalitions of the three to
five biggest parties, which represent centrist interests and have no distinguishable
ideological differences. As such, the legislative could not effectively fiscalize, as the
compromise required to be part of the ruling legislative coalition often requires fealty to
the executive.
Based on Western definitions and functions of political parties, one can easily
argue that parties in the Philippines are not real parties, as their members are primarily
driven by self-preservation, not party platforms, and turncoatism is rampant, particularly
when the party ceases to serve their vested interests. Likewise, parties revolve around
personalities, not platforms, that Presidents are known to make parties rather than the
other way around.
This pattern of personalistic politics has persisted since Philippine independence.
In fact, Carl Lande (1967), in his pre-Martial Law article, concluded that the two major
parties at that time, Nacionalista and Liberal, are identical, making intra-party solidarity
weak, and party-switching common, due to the pervading particularism and parochialism
in the Filipino society.3
The major political and civil society actors in the 1986 EDSA revolution tried to
address this problem during the writing of the 1987 Constitution. According to Mr. Ramon
Casiple, Executive Director of the Institute for Political and Electoral Reform, there was
an agreement to institute a parliamentary system and provide for PR at 50%-50%
district-party list share of the number of Parliament seats. 4 However, the proposal lost by

Carl Lande, The Philippine Political Party System, Journal of Southeast Asian History, 8 March
1967, 20-26.
4
Interview with Ramon Casiple, Executive Director, Institute of Political and Electoral Reform,
Mapagkawanggawa St., UP Village, Quezon City, February 15, 2008.

one vote, and the PR provision was watered down into 80% district-20% party-list (PL),
and was largely dismissed as a concession to civil society.5

The Party-List System: Empowering Small Parties in the Philippines

Despite the flaws in its conception, the PL system remained the embodiment of
hope to institute political reforms. The PL system is a means of diversifying
representation and widening participation of small groups. More importantly, it enables
PL groups to develop into bonafide political parties. Casiple asserts that the original
purpose of the PL system was to provide such a training ground, and it was only later
that its purpose to represent the marginalized and underrepresented sectors was
highlighted, following a Supreme Court (SC) decision.6
From the 8th to the 10th Congress, PL representatives were appointed by the
President, pursuant to the Transitory Provisions and Section 5 (2) of Article VI of the
1987 Constitution, which provides that 20% of the total number of seats in the House of
Representatives (HOR) shall be reserved to PL representatives. Considering that the
maximum number of seats is 250, party-list groups can occupy as many as 50 seats.
In 1995, RA 7941 or the Party-List System Act was passed, to enable citizens
belonging to marginalized and underrepresented sectors, organizations and parties, who
lack defined political constituencies, to contribute to the formulation and enactment of
legislation.7 The initial foray of PL groups in the election produced only thirteen (13) PL
seats, though the subsequent 2001 election was more problematic as dubious PL
groups infiltrated the screening of the Commission on Elections (Comelec), prompting
the SC to provide the following guidelines:
5

ibid.
Interview with Casiple
7
Section 2 of RA 7941, 2.
6

Supreme Court, Guidelines for Party-List Organizations

June 2001
The political party, sector, organization or coalition must represent the marginalized and underrepresented
groups identified in the Section 5 of RA 7941.
While even major political parties are expressly allowed by RA 7941 and the Constitution to participate in the
party-list system, they must comply with the declared statutory policy of enabling 'Filipino citizens belonging
to marginalized and underrepresented sectors x x x to be elected to the House of Representatives.
The Court notes the express constitutional provision that the religious sector may not be represented in the
party-list system. Furthermore, the Constitution provides that 'religious denominations and sects shall not
be registered.
A party or an organization must not be disqualified under Section 6 of RA 7941.
The party or organization must not be an adjunct of, or a project organized or an entity funded or assisted by, the
government.
The party must comply with the requirements of the law; its nominees must likewise do so.
Not only should the candidate party or organization represent marginalized and underrepresented sectors; so
also must its nominees.

The 2004 and 2007 elections were more stable, though it was harder to gain
seats due to the increased number of participants, some of which allegedly received
support from big political parties and personalities. The number of PL seats increased
from eighteen (18) in 2001 to twenty-three (23) in 2004 and went down to twenty-one
(21) in 2007.
The meager number of seats obtained is symptomatic of the inherent problems
of the PL system, which, unfortunately, could not be covered entirely by this paper. For
the purpose of this paper, it is enough to ask whether the PL groups have in fact given
justice to the original purpose of graduating them into political parties.
A study by Fernandez (2007) asked a related question, that is, whether PL
groups contribute to political development, and checked their performance vis-a-vis
three indicators, namely, authorship of bills, relevance of authored measures, and quality
of participation in committee meetings. The paper found out that two PL groups,
Akbayan and Bayan Muna, were able to voice their concerns and push for their agenda

despite the strenuous process of legislation8, while there were PL groups which
threaten the system by being adjuncts of the administration, by being passive, and by
acting like traditional politicians, treating their positions as political vehiclesthey
symbolize regression to elite politics, despite the noble way by which they got their
seats.9
Given these findings, this paper hopes to validate whether one of the PL
champions, Akbayan, was able to graduate into a real political party. In as much as the
paper would be more substantive if Bayan Muna were included in the study, this was
decided to ensure the manageability of the research.
To verify their existence as a party, the researcher came up with a list of functions
of parties as forwarded by Neumann (1969) and Heywood (2002), and used this to
evaluate Akbayan. The researcher also interviewed some key informants and reviewed
pertinent Akbayan party documents and news items.

Framework: The Functions of Small Parties

According to Neumann, political parties are intermediaries linking social forces

and ideologies to governmental institutions, and relate them to political action within the
larger political community.10 As such, they are brokers of ideas, and are constantly
clarifying, systematizing, and expounding the partys doctrine in organizing the chaotic
public will.11 During election periods, they sharpen the voters free choice by providing
voters education. They also help select leaders.

Fernandez, Is the Philippine Party-List System Indicative of Political Development?, paper submitted
for PA 312, April 2007, 29.
9
Ibid.
10
S. Neumann, Toward a Comparative Study of Political Parties, in Jean Blondel, ed., Comparative
Government, London: MacMillan, 1969, 71.
11
Ibid.

Heywood forwards that parties provide various functions, namely representation,

elite formation and recruitment, goal formulation, interest articulation and aggregation,
socialization and mobilization, and organization of government. 12 In doing so, they
ensure that candidates are well trained by the party and have the capacity to articulate
the views of voters and members. Parties also provide education and socialization
among its members and supporters by encouraging and setting up debates and
discussions. Once elected, parties help organize governments by facilitating cooperation
between the executive and the legislative or if they belong to the opposition, by providing
well thought-out policy scrutiny.
From the discussion above, it can be summarized that there are five main
functions of parties.
1. Recruitment and Selection of Members and Leaders
2. Political Education/Socialization/ Mobilization
3. Goal/Policy/Platform Formulation
4. Representation/ Interest articulation/aggregation
5. Connection of government and the public

The following clarifies these functions.

Recruitment and Selection of Members and Leaders

With an ultimate goal of winning elections and running the government, the
quantity and quality of membership could make or unmake parties. Duverger, talking of
the French Socialist Party, emphasized the crucial role of members.

12

Andrew Heywood, Politics, 2nd ed, N.Y: Palgrave Foundations, 2002, 12.

In the first place, the party aims at the political education of the working
class, at picking out from it an elite capable of taking over the government and
the administration of the country; the members are therefore the very substance
of the party, the stuff of its activitySecondly, from the financial point of view, the
party is essentially based upon the subscriptions paid by its members: the first
duty of the branch is to ensure that they are regularly collected. 13
Likewise, parties provide a selection and training ground for leaders. Though
Michels Iron Law of Oligarchy warns against the oligarchic tendency of leaders, parties
definitely need them.14 Whether oligarchic or democratic, leaders are indispensable due
to their negotiating and organizing skills, as well as their ability to articulate party
interests amidst an environment of passive supporters.

Political Education/Socialization/ Mobilization

Parties are important in educating and helping shape the opinion of the public.
Through regular discussion groups, symposia, and fora, parties help the people be more
discerning of issues and government programs, politically socializing them. Parties also
help the public decide on alternative actions, and may mobilize them, not only during
campaign periods, but during periods when there is a need to protest governmental
policies, as well as during times of social unrest.

Goal/Policy/Platform Formulation

Parties set collective goals and ensure that they are carried out.15 While
campaigning, they formulate programs of action if they get elected. While gathering this,
they interact with interest groups, voters groups, and other organizations and individuals
13

Duverger, 63.
Rommel C. Banlaoi and Clarita R. Carlos. Political Parties in the Philippines from 1900 to the
Present. Makati City: Konrad Adenauer Foundation. 1996, 11.
15
Heywood, 254.
14

to achieve the most general program of action which can subsume all these interests.
Once in power, parties help in formulating governmental policies. In the Parliament,
these policies include bills and resolutions and may include speeches and advocacies.

Representation/ Interest articulation/aggregation

There are two main views on representation, the microcosm and the principalagent perspectives. In the former, the focus is on the composition of the parliament,
positing that its members must approximate a sample of the population. In the latter, the
focus is on decision-making, or how well the representatives articulate in behalf of their
constituents. Thus, while it is necessary that a laborer represent the labor group in the
first perspective, it is not as important for advocates of the latter, as they would rather
have a non-laborer who can speak better for laborers. What binds these views is the
capacity of the party to capture, aggregate, and articulate the interests of the society,
acting as an inputting and a processing device of societal needs and wishes.

Connection of government and the public

According to Heywood, parties help in the formation of government and give

governments a degree of stability and coherence, as parties:

1. Come with a highly processed platform which could be the springboard of

governmental policies;
2. Provide a set of pre-trained and pre-selected leaders who can run the
government;

3. Provide a unifying leverage among different branches of government as

candidates who belong to the same parties could discuss and
compromise on policies;
4. Enable faster coalition and ad hoc building, as there will be less need to
talk to individuals to act on certain policies or measures; and
5. Provide a vital source of opposition and criticism, ensuring that
government policies are thoroughly scrutinized, and are therefore more
likely to be feasible.16

To reiterate, the paper evaluates whether Akbayan is performing these functions

and ascertain whether it has in fact graduated into a real political party.

The Inception and Original Platform of Akbayan

After the restoration of democratic regimes in 1986, progressive groups realized

that despite their critical contribution in the anti-dictatorship struggle, they were again
relegated to the periphery of policy making and implementation by traditional elites. 17 To
provide an alternative, the idea of conceiving a citizens political party emerged, and
consultations began in 1994.18
In 1997, the Institute of Politics and Governance published the book Papers of a
Party in the Making detailing the beginning of Akbayan, its concept paper, and
economic, political, and cultural platforms. In a nutshell, the platforms stand for equitable

16

Heywood, 255-256.
Brief History, uploaded on Tuesday, 01 May 2007, at www.akbayan.com, pp. 1-2.
18
Ibid.
17

10

and sustainable growth; strong state, strong civil society; respect for cultural freedoms
and nurturing the internal political culture of the party.19
Akbayan was formally established in January 1998. In May of the same year, it
won seats in the House of Representatives and in several local government units.20

The Narrative of Akbayan 21

The first regular Party Congress of Akbayan in 2001 recognized that to become a
strategic political party, Akbayan has to be more cohesive by developing a unifying
narrative and a set of cadre members. Under the narrative, it was proposed that
Akbayan fight for both participatory democracy and participatory socialism by
democratizing the state and by ensuring an autonomous civil society; by defending
against all forms of imperialism; and by defending the working classes from the ravages
of globalization and by fighting for fair trade.

The General Program of Action (GPOA) of Akbayan

Akbayans GPOA from October 2006 to October 2009 defines the external and
internal/organizational interventions needed to strengthen it as a genuine political party
propelled by a critical mass advancing an alternative national platform 22. The programs
of action includes continuously opposing the present regime, advancing support for
partner organizations, developing transformative governance, expanding relations with
19

Soliman M. Santos, Jr. ed. Papers of a Party in the Making. Institute of Politics and Governance, 1314.
20
Brief History
21
Participatory Democracy, Participatory Socialism: The Akbayan Narrative, Tuesday, 01 May 2007,
(As approved during the 2nd Regular Congress), pp. 1-7, downloaded from www.akbayan.com.
22
Akbayan Citizens Action Party, 3rd Regular Congress, General Program of Action (October 2006October 2009), 1.

11

progressive left parties, movements and governments abroad, implement health,

education, and livelihood projects, and launching a national electoral campaign
mainstreaming Akbayans brand of politics.23

The Organization of Akbayan 24

The highest body of Akbayan is the General Assembly under which the National
Congress, which meets every three years, is subsumed. Under the Congress is the
National Council, the governing and policy-making body of Akbayan in between National
Congress, which meets every six months and which has representatives from Luzon,
Visayas, and Mindanao, and from various sectors. The Executive Committee which is
composed of the staff at the headquarters follows and implements the decisions and
policies reached/formulated by the National Council. The Executive Committee is
composed of the Chairperson, the President, the Secretary-General, the ViceChairperson, the Vice-President, the Treasurer, the Arbiter, 4 members elected at large,
the elected PL representatives, other PL nominees, the Chair Emeritus, two ex-officio
members-- the Congressional chief-of-staff and the Akbayan Youth Chairperson.

Is Akbayan a Real Party?

Reading the above excerpts from Akbayans official documents, one is drawn to
the seriousness in which the party approaches both theory-building and practice of a
new political culture. However, based on the structural-functional approach, it is in how
roles and functions are performed that one can truly discern the effectiveness of the
23

Akbayan Citizens Action Party, 3rd Regular Congress, General Program of Action, 1-6.

24

Summarized from Akbayans Constitution and By-laws

12

organization. Following the functions of parties listed above, the research evaluates the
corresponding policies and actions of Akbayan to determine whether it has truly evolved
into a political party.

Recruitment and Selection of Members and Leaders25

Akbayan has an open membership system where anybody is welcome to join,

though the organization prefers members who are at least 18 years of age, to enable
them to vote in the party-list election. The platform of Akbayan is usually introduced
during rallies and mobilizations using a basic orientation seminar module and endorsed
applicants are asked to fill in membership forms, after which, they are asked to pay
membership fees.
Income-earning members are required to give at least 1% of their net income to
Akbayan while those in the informal sector are asked to decide among themselves how
much should be given to Akbayan. In the last election, all members were required to pay
at least P 1 per day.
Kit Melgar, the Chief of Staff of Akbayan Party-list Rep. Rissa Hontiveros
Baraquel, and a member of Akbayans Executive Committee, estimates that the party
has about 40,000 members, 45 members of the National Council, 100 organizers
nationwide, and 25 core staff members.
In terms of leadership, officers are elected either on the level of territory--on the
barangay, municipal, and provincial levelsor based on the sector where the members
come from.

25

This section is largely based on the researchers interview of Ms Kit Melgar, Chief of Staff of Rep. Rissa
Hontiveros Baraquel, S-511, House of Representatives, February 28, 2008.

13

Choosing the party-list representative is more tedious. The National Congress

which meets every 3 years and is made up by delegates from the provinces or from the
sectors (each representative represents around 500 members) ranks the nominees
chosen by territorial and sectoral congresses, in a process akin to the primaries in the
United States. These mini-primaries are open and anybody can nominate and be
nominated.
Candidates are chosen primarily based on their ability to articulate and by their
experience in Akbayan. They would have been trained by Akbayan if there were enough
funds, however, since the main source of funds, the congressional initiative allocation or
pork barrel, has not been released by the Department of Budget and Management
(DBM) for three years, Akbayan could not fund certain activities like political education
symposia for members and training of officers and staff. It has been reported that
President Gloria Macapagal Arroyo has marching orders to delay the allocation of
opposition parties.26
Akbayan has consistently won seats for its leaders in the House of
Representatives. In the 11th and 12th Congresses, Akbayan won one seat for Rep. Etta
Rosales. In the 13th Congress, it won three seats for Reps. Mario Aguja, Rissa
Hontiveros-Baraquel, and Etta Rosales, and Rep. Rosales was appointed as Deputy
Minority Leader and Chairperson of House Committee on Human Rights. Unfortunately,
in the 14th Congress, Akbayan had a downtrend as it only won a single seat for Rissa
Hontiveros Baraquel.

26

At this point, it can be mentioned that Akbayan is in a fiscal bind, since the party can only depend on
membership fees. Section 6 (4) of RA 7941 prohibits receiving support from any foreign sources.

14

Political Education/Socialization/ Mobilization

In terms of political education, Akbayan is continuously conducting focused group

discussions, as well as regular communications and are posting them over the web.
They regularly use their yahoo group to discuss important matters and to decide on
voting behavior and other policy actions.27
Akbayan provides political education through various forums. Some of the most
notable are the Lawyers Forum for Civil Liberties, and several forums on rice
tarrification, bilateral agreements, charter change, youth agenda, among others.
Akbayan also helps shape the opinion of the public through the use of media. In
2007, Akbayan was able to publish their advocacies in major newspapers. First,
Akbayan called for the early passage of the anti-discrimination bill for gays, for which a
counterpart bill was to be filed by Sen. Noynoy Aquino, and Akbayan opposed Rep.
Abante, a known critic of the bill, as possible chair of the House Committee on Human
Rights.28. Second, the group asked the SC to dismiss the civil suit seeking to halt the
implementation of the milk code filed by milk manufacturers. 29 While the manufacturers
cried foul on the prohibition of advertising infant formula, Akbayan believes that these
advertisements undermine the culture of breastfeeding. Third, Akbayan asked the
Comelec to disclose the name of party-list nominees, alleging that some are backed by
the administration.30 They listed eleven suspected PL groupsAKSA, Babae Ka, Ang

27

Interview with Kit Melgar.

Jeannette Andrade, Akbayan seeks early passage of pro-gay bill, Philippine Daily Inquirer, June 30
2007, A9
29
Leila Salaverria. Akbayan solons take up cudgels for breastfeeding. Philippine Daily Inquirer. June
15, 2007. A17
30
Canlas, Jomar. Akbayan goes to SC for party-list names. Manila Times. April 24, 2007. A2.
28

15

Kasangga, Akbay Pinoy, Ahon Pinoy, Aangat Tayo, Anak , Biyaheng Pinoy, Anad,
Kakusa, and Agbiag.31
Akbayan party representatives also have frequent TV appearances. Rep. Etta
Rosales was known to be the main defender of the act providing compensation to
human rights victims during the Marcos regime. She also increased the awareness of
the people on the privileges enjoyed by the commissioners of Presidential Commission
on Good Government, fighting it out with Commissioner Abcede. 32 She was also known
for her media appearances on the subject of coco levy.
Akbayan also became known as a major opposition group by leading
mobilizations against the regime during the Hello Garci controversy and the
impeachment calls against PGMA.33

Goal/Policy/Platform Formulation

Akbayan painstakingly consults all members in formulating policies. For one, the
collation of comments and documentation of discussion groups to come up with a party
platform took about six months.34 Akbayan also conducts joint planning sessions to come
up with common analysis, positioning, and tasking on important issues.35
In the 13th Congress, Akbayan was able to help in national policy formulation and
legislation by having central roles in the passage of the measure abolishing the death
penalty and the enactment of the law on juvenile justice. Rep. Rosales guided these bills
through the legislative mill as Chairperson of the House Committee on Human Rights.
31

Gerald Anthony Naval, Akbayan asks Comelec to probe govt party lists. Malaya March 22, 2007.
A2
32
Akbayan Citizens Action Party, S 511 Report; Office of Representative Etta Rosales, July 2004 to
September 2006, 4.
33
Akbayan Citizens Action Party, Akbayan Committee, 1.
34
Interview with Kit Melgar
35
Akbayan Citizens Action Party, Akbayan Committee, 1

16

Rep. Aguja was also instrumental in pushing for the passage of a bill on self-organization
and a local bill on agrarian reform, which unfortunately languished in the Senate. Rep.
Hontiveros-Baraquel was also part of the approval of the income tax reduction bill, which
suffered the same fate in the Senate.
This Congress, Rep. Hontiveros-Baraquel helped input the alternative budget for
health, education, agriculture, and environment in the 2008 General Appropriations Act,
with the help of certain civil society actors. Likewise, she is at the forefront of the
measure extending the agrarian reform program.

Representation/ Interest articulation/aggregation

Akbayan tries hard to bring into the table the issues of marginalized sectors by
consulting with the various sectors it represents. Rep. Hontiveros-Baraquel spearheaded
an Akbayan consultation in Albay on the Lafayette mining operations to help craft an
alternative mining bill. 36 She also met with stakeholders to figure out how to block the
farmland as collateral bill; and organized a youth forum to enhance Akbayans youth
agenda37
Akbayan represented its sector in the 13th Congress by filing relevant bills
concerning human rights, women, education, electoral reform, local government,
overseas Filipinos, agriculture, media, labor, peace, agrarian reform, fisheries, public
sector, environment, health, youth, and taxes. 38 The following table shows the
accomplishment of Akbayan from the 11th to the 13th Congress.

36

Akbayan Citizens Action Party, S 611 Report; Office of Akbayan Rep. Ana Theresia Hontiveros-Baraquel,
July 2004-September 2006, 2.
37
Akbayan Citizens Action Party, S 611Report, July 2004-September 2006, 2-3.
38
Akbayan Citizens Action Party, Akbayan Committee, 3.

17

Table No. 1. Total Number of Measures Authored by PL Groups from the 11 th to the 13th
Congress
Party
National Bill/Res
Local Bill/Res
Total
11th
12th
13th
11th
12th
13th
11th
12th
13th
Akbayan

44

65

101

21

22

52

86

123

Source: Fernandez, Is the Philippine Party-List System Indicative of Political Development?,

paper submitted for PA 312, April 2007, 18.

From July 2004 to September 2006, Akbayan representatives also delivered a total of
twenty-three (23) privilege speeches on their represented sectors. 39 Rep. Rosales
delivered speeches on the plight of teachers and on the issue of selecting the President
of the Philippine Normal University (PNU), herself having risen from the ranks of the
teachers in the PNU. Rep. Aguja, the Mindanao representative, inquired on the terms of
reference on the joint US-RP joint military exercises in Sulu.40

Connection of government and the public

Akbayan primarily connects the government to the public by thoroughly

scrutinizing government programs and projects and by bringing the critical voice of the
masses to the negotiating table. Akbayan also gives the public a means to redress
grievances in the government and to ensure that violations of human rights are given
adequate attention and if needed, are investigated.
Rep. Rosales elevated the cases of abuse and killing of peasants in the
implementation of the CARP to proper authorities, and opposed the promotion of
Palparan, an alleged human rights violator.41
Rep. Aguja was particularly concerned with the housing and urban poor issues
revolving around the Philippine National Railways (PNR) Project in the North and was
39
40

Akbayan Citizens Action Party, Akbayan Committee, 3.

Akbayan Citizens Action Party, S 514 Report; Office of Rep. Mayong Aguja, July 2004-September 2006,

3
41

Akbayan Citizens Action Party, S 511 Report, 4.

18

successful in the creation of a special committee for the purpose. 42 Likewise, he raised
the issue of inefficiency in housing agencies in facilitating urban poor concerns during
budget hearings.43 He also consulted with the Social Security System (SSS) regarding
the concerns of the informal sector.44 He also filed a resolution and lobbied for the
payment of the missing compulsory contributions of teachers to the Government Service
and Insurance System (GSIS) in the ARMM region.
Rep. Hontiveros- Baraquel facilitated dialogues between the Department of
Environment and Natural Resources (DENR) and sectoral groups on certain
environmental issues and was a constant critical voice in budget deliberations. In the
2005 budget, she asked for the inclusion of items for differently-abled persons, and for
additional health budget, while lambasting the short-sightedness of NEDAs development
plans, among others. In the 2006 budget, she interpellated on environmental, agrarian
reform, security, and agriculture issues, and in the 2007 budget. she participated in a
multisectoral effort to craft an alternative budget.45

Analytical Discussion

Akbayan rates well in the performance of the five functions of political parties. In
the recruitment and selection of members and leaders, its ability to register 40,000
individuals as members and to provide them orientation seminars is plausible. However,
the ratio of organizers to members a 1: 1000 needs to be improved. Also, there is a need
to think of alternative ways to increase the membership fees of sectors which can afford
such, to sustain the party. In terms of selection of leaders, Akbayans consultative
process, though open, is also quite oligarchic. Though the various steps to get elected
42

Akbayan Citizens Action Party, S 514 Report, 1

Akbayan Citizens Action Party, S 514 Report, 2
44
Akbayan Citizens Action Party, S 514 Report, 8
45
Akbayan Citizens Action Party, S 611 Report, 4-5.
43

19

as party nominee ensure competence, it may also have an alienating effect on the
general assembly.
In terms of political education, socialization, and mobilization, Akbayan
distinguishes itself by having a strongly defined ideological narrative. However, there is
a need to provide more forums covering more topics in different areas of the country.
Since funding is a main concern, Akbayan can make use of its leaders, such as former
Reps. Rosales and Aguja to attend more media conferences and to publish more
articles. Rep. Hontiveros-Baraquel may be articulate and charismatic but the effort of
one person is inadequate considering the challenges in further educating the electorate
to look beyond traditional politicos laden with short-term gifts. However, some
calibration is needed to simplify Akbayans message so as not to overwhelm the public
and/or to fall out of synch with them. For a party to be successful, it must proceed in
tandem with the electorates grasp while seeking to further increase its capacity to
understand.
In the third function of goal formulation, Akbayan has a concrete and dynamic
program of action keyed into its core values. In terms of national policy formulation,
Akbayan was successful in the 13th Congress as Rep. Rosales earned a chairmanship in
a relevant committee and was able to pass two important measures. Nonetheless,
several vital bills languished in the Senate, thus Akbayan must forge a partnership with
at least two senators to ensure that its bills move up in the legislative mill. At the end of
the day, it is the product and not the process that counts in public perception.
Akbayans ability to represent its sectors is unquestionable. The fact that Rep.
Aguja was able to lobby for the payment of GSIS contributions of teachers in the ARMM
area is an accomplishment that even bigger parties could not achieve. On the other
hand, the criticisms of several groups, notably of those who left the Akbayan coalition,

20

that certain sectors were not represented well, should be seriously studied. After all, one
of these groups broke away and was able to get one PL seat in the 14th Congress.
In the final function, that is, connection of the government and the public,
Akbayan is effective in facilitating coordination with various government agencies like
PNR, SSS, GSIS, DENR, and others. Nevertheless, it is in the continuous public policy
scrutiny that Akbayan is known for. Akbayan is however guilty of demanding certain
reforms which may not be feasible under the present political system. Though they
belong to the opposition, Akbayan should be responsible and ensure that their brand of
politics, though better ideally, could work under present political conditions. An example
of this is the complicated reforms Akbayan is asking in the bill extending the
implementation of agrarian reform when there is already a press for time to pass it.

Conclusion and Recommendations

Casiple is convinced that party-list groups in general have failed to develop into
real political parties as their local government candidates were not even able to win a
single seat.

46

Notably, Akbayan did not field any candidates for local government

positions. While there is some truth to Casiples conviction, it would certainly be an

injustice to overlook the substantial efforts of Akbayan to continuously update its
narrative and ideology and strengthen its organization. From the data gathered on the
operation of Akbayan, one can easily say that Akbayan is a party in the purest sense,
as the organization consciously carries out the party functions defined by Neumann and
Heywood, albeit minimally in some areas.
It is however in transforming Akbayan into a national party which is able to field
local candidates where the problem lies. Improving Akbayans political efficacy is an
46

Interview with Casiple.

21

uphill battle, primarily due to its financial problems. While there are moves to provide
campaign finance to legitimate parties, it is no secret that even with supporting statutes,
having adequate internally-generated resources spells the difference in strengthening
the party and in funding local campaigns. In fact, in the last 2007 elections, Akbayans
resource limitations led to its failure to obtain more than one PL seat and to enlist local
candidates to run under the party. Though this could be attributed to several factors,
such as the level of organizing of the party, the realpolitik is that ideological speeches,
mass campaigns, media projections, and mobilizations can only go so far, and do not
automatically translate into votes. Perhaps, Akbayan should consider filing the
appropriate case based on their lack of congressional allocation and submit the same to
the SC on the basis that under Section 17 of RA 7941, PL representatives are entitled to
the same salaries and emoluments as regular members of the House of
Representatives. Also, the annual General Appropriations Acts provides at least P15 to
P20 Million per representative under the section on Countrywide Development Fund.
Akbayan can always raise Bayan Munas receipt of the same funds as precedent.47
Likewise, it is high time for Akbayan to target richer but progressive individuals,
and impose a stricter tithing system to increase the level of funding, while finding ways
to optimize use of their present resources. Still, Akbayan must be cautious in expanding
its membership as its strength lies in its institutional credibility. While traditional parties
are unable to draw the emotions and loyalties of their members, Akbayans main
strength is its ability to rally members using their attachment to its various causes. This
perception should be defended against the threats of trapoization, and though funding
may be in dire straits, Akbayans identity and narrative should not be compromised.

47

In the researchers interview with Kit Melgar, she stressed that all other party-list groups, including
opposition groups like Bayan Muna, have received their allocation under the CDF.

22

Meanwhile, Akbayan needs to strengthen its organizational and leadership

capabilities. While it is impressive that their representatives are known for their industry,
it is also often observed that they are unduly extending themselves, and that there are
times that they lose focus on more substantial, and perhaps, more controversial issues.
Now that Akbayan has only a single seat, it is in danger of being easily forgotten such as
what happened to Abanse Pinay, thus its core members must find ways to play up
Akbayans and Rep. Hontiveros-Baraquels abilities and achievements in the media.
After all, elections, with or without the PL system, is still based on popular opinion and
perception.
Finally, Akbayan must be congratulated, as they are deliberately pushing for
political reform, albeit quite insignificant at this stage due to the limitations of their size.
Ultimately, Akbayan may be the vanguard of a new era in Philippine party politics, as
Duveger opines:
Historically speaking parties were born when the masses of the people
really made their entrance into political life; they provided the necessary
framework enabling the masses to recruit from among themselves their own
elites.48
Whether Akbayan is capable of crossing the threshold from existing as a PL party
into an established national party however remains to be seen.

48

Duverger, 426.

23

References
1.

Rommel C. Banlaoi and Clarita R. Carlos. Political Parties in the Philippines

from 1900 to the Present. Makati City: Konrad Adenauer Foundation. 1996.

2.

Maurice Duverger. Political Parties; Their Organizations and Activity in the

Modern State. Trans. Barbara and Robert North. N.Y.: John Wiley Science
Editions. 1963.

3.

David M. Farrell. Electoral Systems: A Comparative Introduction. N.Y.

Palgrave. 2001.

4.

Fernandez. Book Review of Electoral Systems; A Comparative Introduction by

David Farrell. January 30. 2008.

5.

Fernandez. Is the Philippine Party-List System Indicative of Political

Development?. paper submitted for PA 312. April 2007.

6.

Andrew Heywood. Politics. 2nd ed. N.Y: Palgrave Foundations. 2002.

7.

Carl Lande. The Philippine Political Party System. Journal of Southeast Asian
History. 8 March 1967.

8.

S. Neumann. Toward a Comparative Study of Political Parties. in Jean Blondel.

ed.. Comparative Government. London: MacMillan. 1969.

9.

Soliman M. Santos. Jr. ed. Papers of a Party in the Making. Institute of Politics
and Governance. 13-14

10.

RA 7941 or An Act Providing for the Election of Party-List Representatives

through the Party-List System and Appropriating Funds therefore

11.

Jeannette Andrade. Akbayan seeks early passage of pro-gay bill. Philippine

Daily Inquirer. June 30 2007.

12.

Canlas. Jomar. Akbayan goes to SC for party-list names. Manila Times. April
24. 2007.

13.

Gerald Anthony Naval. Akbayan asks Comelec to probe govt party lists.
Malaya March 22. 2007.

14.

Leila Salaverria. Akbayan solons take up cudgels for breastfeeding. Philippine

Daily Inquirer. June 15. 2007.

15.

Akbayan Constitution and By-laws.

16.

Akbayan Citizens Action Party. 3rd Regular Congress. General Program of Action
(October 2006-October 2009).

17.

Akbayan Citizens Action Party. S 611 Report; Office of Akbayan Rep. Ana
Theresia Hontiveros-Baraquel. July 2004-September 2006.

24

18.

Akbayan Citizens Action Party. S 511 Report; Office of Representative Etta

Rosales. July 2004 to September 2006.

19.

Akbayan Citizens Action Party. S 514 Report; Office of Rep. Mayong Aguja. July
2004-September 2006. 3

20.

Interview with Ramon Casiple. Executive Director. Institute of Political and

Electoral Reform. Mapagkawanggawa St. UP Village. Quezon City. February 15.
2008.

21.

Interview of Ms Kit Melgar. Chief of Staff of Rep. Rissa Hontiveros Baraquel. S511. House of Representatives. February 28. 2008.

22.

Brief History. uploaded on Tuesday, 01 May 2007. www.akbayan.com.

23.

Participatory Democracy. Participatory Socialism: The Akbayan Narrative.

Tuesday. 01 May 2007. (As approved during the 2nd Regular Congress). pp. 1-7.
www.akbayan.com.

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