Philippine Journal of Public Administration, Vol. XLVII, Nos.

1-4 (January-October 2003)

Regulating Campaign Finance in

the Philippines: Limits and Challenges
EDUARDO T. GONZALEZ'

This article addresses the tension between a constraining

governance environment and the reforms that have to be put in place
for the success of anticorruption drives in the campaign finance system.
Windows of opportunity for changes occasionally open up though
significant breakthroughs are limited to a certain point. It is
important to acknowledge that the institutional weaknesses of the state,
the concentration of vested interests, and the extent of what the
institutional economics literature describes as "state capture, n will work
as powerful brakes on various government initiatives, eroding their
effectiveness andsustainability. Government programs thus should be
crafted around realistic "litmus tests" that recognize the qualifying
factors in such environments.

Introduction

Most Philippine government anti-corruption initiatives, regardless of

source, fail to endure and lose ground more often than not. The culprit is a
troubled enabling environment (the means through which authority is
exercised in the management of the resources of the state). It is not easy to
go beyond one's governance perimeters. Scattered reforms, left to run their
own course, have run aground, because of the limits imposed by weakened
institutions and a not-so-level playing field.

On most counts of governance, the Philippines has received fair marks,

suggesting that the country is reasonably managed (although serious
challenges remain). But it is also regarded as a "soft state," in clear reference
to the absence of a disciplined and capable bureaucratic culture. A cogent
societal fabric and strong political will are vital to overcome such weaknesses.
Apparently, Philippine institutions, set of roles, rules, decisionmaking
procedures, and programs that serve to define campaign finance are
inefficient.

The challenge is to overstep the confines, to create synergies that can

lead to a "creative destruction" of fair governance. In terms of game theory,
when one agency such as the Commission on Elections (COMELEC) breaks

*President, Development Academy of the Philippines. •

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 REGULATING CAMPAIGN FINANCE IN THE PHILIPPINES 277

out of its own institutional boundaries, others such as the Philippine Congress
ought to typically ask themselves how they must react to come up with a least
bad outcome. That is, if they have an incentive to fear being left behind by
successful moves. So the first agency must motivate at least a few others to
copy its actions, and hopefully create a virtuous circle of reforms.

How Public Institutions Are Stifled

In the Philippines, the steadfast advance of the capacity of the state and
the strength of its public administration are easily repressed by powerful
vested interests.

Historically, economic elites have long secured positions of dominance in

the government as a way of preserving economic and political power. It is no
accident that it has been difficult to enforce campaign finance reform under a
liberal democratic regime, particularly one in which political life is dominated
by elite parties.

The power center is a centralized bureaucracy that orchestrates the

execution of policy and allocation of spoils. Such concentration of power at
the top blends with the decentralized power of families and clans, within the
context of a "nee-patrimonial" political system (Azfar et al. 2000). The flow of
power is from regional elites to central state authorities (Franco 2000). The
main political formations such as the Lapian ng Masang Pilipino (LAMP),
Nationalist People's Coalition (NPC), Laban, Lakas, and National Democratic
Front (NDF) are unstable political coalitions, implying no genuine party
loyalty exists. The national electoral system is nominally competitive.' It is a
curious set of first-past-the-post contests, and mainly yields the president,
senators and local-council (sanggunian) representatives who are elected at
large, as well as Congress members elected from geographic constituencies,
along with a small number elected from party lists. The need to share the
spoils of political victory often incites a scramble by politicians across parties
to join the winning Presidential candidate's party (Azfar et al. 2000).

Because the president has discretion over disbursement and big-ticket

government contracts, licensing authority, and fiscal management powers, a
pattern appropriated from the American presidential system, politicians have
• to ally themselves with the chief executive to ensure funding for key projects
and a major share in the patronage resources of the government. In turn, in
the absence of effective political parties, the president has to count on local
elites for electoral support and mobilization. As a result, local elites can
leverage local power effectively during elections and, in-between, ask for
. major concessions, through the Congress, from the central government
(Rocamora 1995). The leverage that the chief executive has on local

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278 PHILIPPINE JOURNAL OF PUBLIC ADMINISTRATION

politicians is matched by the leverage that local politicians have In their

ability to collect votes from their local bases of power (Igaya 1999).

This local-central symmetry is perpetuated when Congress members

routinely engage in party switching to bolster the ranks of the ruling party in
successive elections, a practice which in turn stiffens the lack of any real
programmatic or ideological separation among Philippine political parties
(Franco 2000). One result of this system is that the Philippine legislature by
and large does not mediate differing interests; its policies, laws and resource
priorities are seen widely as directly favoring powerful constituencies
(Gonzalez and Mendoza 2002). Minorities also have little voice (other than as
local majorities), especially in national politics (Azfar et al. 2000). As
suggested by De Dios and Ferrer (2001) as well as Mendoza (2001), these
political contests for control of resources are quite intense since the state
disburses a significant amount of resources and has wide powers of discretion.

It is at the central level where concentration of vested interests takes a

life of its own and generates incentives that induce grand corruption. The
Marcos regime left a legacy of tightly knit relationships between central
government and big business. Political and economic exchanges were and,
still are often based more on informal and personal relationships than on
market transactions. It is further stimulated by a presidential system
wherein the power of decisionmaking is in the hands of a small political elite.
The close tie-up between big business and government can be seen as one of
the chief causes of corruption in the Philippines. Rules have not been able to
adequately sort out the coupling of private and public interests.

It is crucial to understand this in the context of a political economy

distinguished by relatively weak institutions. The formal channels of interest
intermediation can offer circuitry for state capture-the actions of
individuals, groups, or firms both in the public and private sectors to
influence the underlying rules of the game (i.e., legislation, laws, rules, and
decrees). State capture also suggests purchase of laws and policies to get both
the legal framework and the policymaking process out of shape in a
systematic striving for concentrated rents (World Bank 2000a). Captor firms
seek to shop for privileges a la carte directly from the state, such as
individualized protection of their initially weaker property rights, in an
environment where government undersupplies the public goods necessary for
effective entry and competition (Blechinger 2000). The reality of Philippine
politics is that, access to and application of government policy, are for sale.

State capture is evinced by a relatively small number of families having

a strong effect on the economic policy of governments. In the Philippines, a
single family like the Ayalas, has ultimate control over 17.1 percent of the
total market capitalization (Claessens, Djankov and Lang 1999). Such wealth

January-October
REGULATING CAMPAIGN FINANCE IN THE PHILIPPINES 279

concentration, and the interlocking links between owners and government

officials, cast doubt on the independence of legal institutions in the country.
It raises the prospects, according to Claessens, Djankov and Lang (1999) that
the legal system may be endogenous to the variety and strength of control
over the corporate sector. In a situation of state capture, legal institutions
are subverted and less likely to evolve in a manner that promotes transparent
and market-based activities. In Figure 1, the higher the share of the top 15
families, the lower the level of efficiency of the judiciary, the weaker the rule
of law and/or the higher the judicial corruption. Thailand, Indonesia and the
Philippines seem to have the lowest level of legal institutional growth because
of heavy ownership concentration in the corporate sector (Gonzalez and
Mendoza 2002). Under such conditions, alliances with the upper class are
easy to make and painful to break. Independence in decisionmaking is hard
to maintain.

Figure 1. Are Asian Judicial Systems Endogenous?

12 r--------------------,-------...,
Singapore
10 t--------=----...~__- - - - - - - - - - - - 1
~

I!CD
.Q
II

of 8
(,)
Ul
~
CD
s:
.~
%:

0 - 1 - - - - - - . - - - - . . . . - - -........- - - . . . . . - - -........--_.....-_ _-1

o 10 20 30 40 50 80 70

Share ot top 15 tam i1ies In total market capitalization

• Efficiency of judicial system. Rule of law 'Corruption

Source: Claessens, Djankov and Lang 1999.

Corruption has had a significant impact on this process, encoding

advantages in new rules and institutions for narrow vested interests. Public
officials appear to have created a private market for the provision of normally

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280 PHILIPPINE JOURNAL OF PUBLIC ADMINISTRATION

public goods (contract rights, sale of public assets). Bribes are offered and
accepted to ensure the capture of these resources; in turn these bribes
transfer monopoly rents to private interests. Such substantial gains for
private parties unfortunately generate negative externalities for the rest of
the economy and society at large.

Rose-Ackerman (1999) defines the problem of grand corruption in the

public sphere as a substantial expenditure of funds with a major impact on
government budget and growth prospects. It is a typical outcome arising from
the character of government interventions. Transactions within the
government always involve some asymmetry of information between two or
more parties. Government intervenes precisely in situations of market
failure, when provisioning through the market is not a viable option. In this
context, corruption ensues spontaneously as a result of the existence of rents
and monitoring failures (Broadman and Recanatini 2000).

Ultimately, the political superstructure-the political system, balance of

powers, electoral competitiveness, and so on-establishes the incentives for
those in office to be either honest or dishonest. The specific features of the
political structure determine the degree of accountability in the system. The
degree of competition in the political system, institutional choices made by
government and the check and balance mechanisms, and the transparency of
the system, are the important ones. Eventually, these conditioned the
political actors' responses to corruption, and, thus, set its equilibrium level
(World Bank 2000).

The Role of Political Competition and Political Parties

Political competition determines the efficiency of political outcomes.

Rose-Ackerman (1999) suggests, for example, that elections, if freely,
regularly and fairly conducted, can ensure that politicians can be held
accountable for their action while in public office. Elections are
straightforward competition mechanism. Theoretically, it is both a reward
and punishment device that can control politicians' conduct. In practice,
perverse incentives allow politicians to transform elections into a platform for
rent-seeking.

The key, according to the World Bank (2000), is to establish rules (or
institutions) that stretch politicians' time horizons to improve the efficacy of
elections as a reward mechanism. That means redirecting the system so that
politicians assume a longer range of vision. The longer the term goals, the
higher are the politicians' incentives to adhere to good governance. For
example, political systems that make political parties relatively stronger vis-
a-vis candidates should have fewer self-interested politicians. Close lists are

January-October
 REGULATING CAMPAIGN FINANCE IN THE PHILIPPINES 281

good examples. In legislative elections, they create incentives for individual

politicians to worry about the reputation of the party as a whole; thus
producing a corruption reducing effect (Rose-Ackerman 1999).

When political parties vie for the provision of the same public service in
a competitive environment by way of an election, they tend to reduce the
extraction of rents and distribute political rewards more evenly (World Bank
2000). Because the elected official has a social coalition behind his position,
the official will be less susceptible to powerful elite forces out to bend the
state to their will (Igaya 1999). The party is often put in a contradictory
position of pleasing every constituency, but if it is unable to carve its own
role, goals and policies, it weakens its position vis-a-vis other stakeholders
and makes it susceptible to pressure by dominant interest groups.

The institutional weakness of the Philippine state is in a way a reflection

of the Philippine political parties' instability. Political parties in the
Philippines are not based on class or ideological differences. While political
parties continue to be the main instrument of social mobility, they do not
carry a development paradigm (Igaya 1999). Drawing from various
observations, Romero (2002) characterizes political parties as makeshift
coalitions built around specific electoral contests-essentially instruments
used by the elite in personal-political competitions. They are held together
only by dyadic patron-client relationships. Necessarily, they are financially
and organizationally weak. Romero points out that as a result, the political
system cannot establish a competitive, level-playing field. Ruling parties
have distinct advantages in campaign fund raising, and because they are
considered as elite parties, the system becomes inhospitable to parties
representing the majority of workers and peasants. The lack of mass
membership! suggests that the current system obstructs the institu-
tionalization of mass political parties, because there is a constant need for
regrouping. The real mobilizing organizations are the candidate's electoral
machinery and network of relatives, friends, political associates, and allies
(Gonzalez 2002).

The lack of stable membership base of Philippine political parties results

in the absence of a steady organizational life, discernible structures by which
to engage the energies of party stalwarts to project their presence and regular
activities. They are only visible and active during elections (David 1997).

Without broad-based support, political parties do not have party funds to

collect or account for. Party expenses are paid for directly from the pocket of
whoever is aspiring to be the standard bearer in a given electoral season
(David 1997). Political parties are more dependent on powerful firms and
financial interests for sources of financing and on electoral tactics such as
vote-buying, vote-rigging, and intimidation. On the other hand, there are

I
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virtually no funds for other, non-election activities such as strategic planning

and platform formulation, recruitment of party members, voter education,
among others (Romero 2002).

Moreover, in a context of widespread corruption and lack of confidence in

the impartiality and efficiency of government, Philippine political parties (or
rather, politicians comprising their influential echelon) easily transform
public offices into opportunities for personal profit. Della Porta, et al. (2000)
did an excellent study of Italian political parties' shady dealings, may just as
well be describing the Philippine context: the more costly the political
campaign, the larger the incentives to draw money from the occupation of
public positions. At the same time, the richer the opportunities for
illegitimate profit in public roles, the easier (and more advantageous) it is to
invest huge sums in electoral campaigns. Worse, potential corruptors can
modify public decisions in a way favorable to them. Corrupted party leaders
and functionaries can directly influence the action of public administrators,
who are the final executors and providers of specific favors (Della Porta, et a!.
2000).

From the perspective of principal-agent relations, the agents (in this

case, the politicians and bureaucrats) are able to abuse the advantages offered
by such discretionary political power in the wake of the incoherent interests of
the principal (in this case, the electorate or the public at large). This
incoherence of public interest, according to De Dios and Ferrer (2001), stems
partly from social divisions (resulting from ethnic-linguistic dimensions,
religion and urban-rural distinctions) and the gap between rich and poor.
Moreover, large segments of Philippine society do not necessarily regard
institutions of government as representing values that are superior to those of
smaller groups, such as clan or family, thus contributing to a split-level set of
acceptable public behaviors. In this context, De Dios and Ferrer aver that,
where the notion of what constitutes public interest is either vague or
disputed, reward and penalty mechanisms are unlikely to function smoothly.
It is not easy to align politicians' preferences with those of the electorate
without a clearly articulated public interest; consequently, it would be hard to
punish politicians who adopt "bad policies."

Linkages Between Campaign Money and Policy Outcomes

In the Philippines, it is not difficult to purchase major influence over

government through campaign contributions. Although there is separation of
powers, which disperses power and influence widely, and while they also
multiply veto points as well as points of political access, legitimate and
otherwise, those who can be said to have such power (the President, arguably,
and a few major legislators) are the focus of demands (and receive

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REGULATING CAMPAIGN FINANCE IN THE PHILIPPINES 283

contributions) from a very broad range of firms and individuals seeking

influence over public policy.

The Philippine pattern of free-standing, self-financed campaigns! do not

necessarily represent a dispersal of political influence. That is because
winning candidates at all levels, who must organize and find funds for their
own campaigns, become in any case beholden to the victorious presidential
candidate and his or her political entourage for bureaucratic largesse. While
overall large sums are spent on campaigns, demands are focused on only a few
high-level offices-a weakness that obstructs meaningful electoral finance
reform. "Agents" (e.g., politicians and bureaucrats in these high-level offices)
are better informed about prospective policy changes that offer new rent
opportunities (e.g., privatization initiatives during liberalization episodes)
(Mendoza 2001).

Ironically, weak parties that help define the Philippine political

landscape make for equally weak rules and regulations, and thus easier access
to influence. There exists no party disciplining mechanism that will provide
some measure of accountability for winning candidates. Neither is the party
responsible for applying government sanctions, which in any case are not
enforced strongly. Most of the campaign donors' recipients, even party
leaders, could credibly guarantee major favors in exchange for funds. As with
every scarce and valuable commodity, political guarantees can then be
demanded and supplied in exchange for a price. Examples of policies that can
be "guaranteed" are industrial priorities, fiscal policies, regulatory rules,
judicial decisions, and electoral rules, among others (De Dios and Ferrer
2001). Changes in regime or policy environment can provide opportunities to
secure illicit gains from "policies for sale." Not surprisingly, this factor
increases the clout of any big contributor.

Despite this, causal links between electoral contributions and policy

outcomes can be exceptionally hard to prove, whether analytical or legal
standards of proof are employed. In any campaign finance situation, the
"money trail" can involve diverse players, with ultimate sources being difficult
to trace (Johnston 2000). It may be easy enough to detect or legislate against
politicians using public office for personal gain. But it is much harder to
ascertain even if there are strong suspicions, whether these politicians are
becoming overly indebted to the groups or individuals who fund their
campaign.

To begin with, politicians spend three times: one, to become candidates,

two, to be voted upon; and three, to get the votes counted in their favor. It
takes money to pay a campaign staff and buy materials. It takes money for a
campaign to be taken seriously by the press. It even takes money to raise
more money. In the Philippines, a presidential candidate needs billions of
pesos to finance a nationwide campaign. In 1998, one estimate put the total

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284 PHILIPPINE JOURNAL OF PUBLIC ADMINISTRATION

cost of presidential campaign at P3 billion: PI billion for orgamzmg a

nationwide machinery; PI billion for media and propaganda; and PI billion for
election and post-election day expenses, including the recruitment of poll
watchers. Airplanes and helicopters, which are musts in campaigning in an
archipelago and in traffic-choked cities, are also among the big ticket items in
campaign expenses. They also include slick public relations practitioners
(advertising can swing races), poll watchers, and the ubiquitous semisecret
kitty to buy votes (De Castro 1998). Yet, ensuring that the campaign kitty is
used only for ethical campaigning purposes by the party, and is not eventually
channeled to policymakers, is a regulator's nightmare.

There is a melange of political financing-some are legitimate but most

are tainted. The most known ones are donations, commissions, bribes given
to public officials in exchange for contracts, concessions, and so on. Voter
support is also won through the use of pork barrel for funding "visible" public
works projects. Diversion of government funds, that is, money that comes
from the Treasury or government corporations for election purposes occurs
matter-of-factly every election season. Deft strategizing by government
lawyers may have helped the practice escape being considered illegal (De
Castro 1998).

All these make the paper trail very difficult, and even aggressive.
Nongovernment organizations (NGOs) like the Philippine Center for
Investigative Journalism (PCIJ), which is noted for uncovering several
campaign finance irregularities, have to chart courses not trodden to establish
proof of wrongdoing.

In addition, COMELEC, the electoral oversight body, does not make a

clear distinction among campaign expenditures, which are largely
unregulated, even if there are firm limits on paper. In the United States,
political parties are allowed to spend money on both "party building
activities," such as "get-out-the-vote" efforts and generic advertising, such as
"Issue" ads (soft money) and on more conventional campaign spending (hard
money). Good accounting can help establish the connection among policy
outcomes, recipients of political contributions, and donors, but Philippine
regulators often look the other way.

Wholesale political influence through electoral finance may be hard to

uncover in the Philippine system, but that does not mean there are no
corruption perils. Also, access to pork barrel funds by legislators may be
justified by some as constituent service, but strikes most people as
safeguarding electoral bases. Innocuous riders in bills, which are often
inserted in the course of bicameral sessions, are unlikely to attract much
public or press 'attention, but can be of major benefit to a particular donor.
Looked at another way, politicians and bureaucrats may practice a form of

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REGULATING CAMPAIGN FINANCE IN THE PHILIPPINES 285

"political money-laundering," converting resources that cannot be transformed

directly into influence by other means. At local levels, campaign finance
purchases benefits that may be individually too small to be visible to be
minded by the public, but collectively add up to a corrupting influence upon
Philippine politics.

Institutional Choices: Mostly Weak Links

and a Few Bright Spots

The Philippine experience in campaign finance to date has produced

largely harmful results. To a large extent, this failure in governance has been
occasioned by choices made by the country about institutional structures,
which in turn, set in motion transition paths that favor particular growth
patterns and shape incentives for slow changes. These institutional choices
represent a binding constraint on further progress in campaign finance
reform.

Current laws leave little way of knowing what the scope of the problem
might be. Major corrupt practices via campaign contributions do not seem to
precipitate any kind of crisis in the Philippine political system. But it is also
hard to see how existing laws would systematically reveal such problems, or
prevent efforts at influence-buying by sufficiently determined and skillful
agents. Some of the major questions, such as, what constitutes knowing
involvement in raising funds, what is or is not an illegal contribution, are
well-removed from the actual exercise of corrupt influence, and from rent-
seeking behavior by agents, that is, politicians and bureaucrats. It is difficult
to make a case that political contributions, either foreign or domestic, have
captured the Philippine political process. But it is quite clear that campaign
finance in the Philippines may pose emerging corruption risks demanding new
safeguards.

In the Philippine electoral system, success is equivalent to the total

number of votes a candidate is able to garner. Candidates to political offices,
from President down to the barangay chairman, are elected in this "first past
the post" system. This system is simple, straightforward, and much easier for
ordinary voters to understand compared to "block voting," for example. It sets
off; however, a parallel system of competition for electoral funding from
various vested sources. All those with name-recognition who emerge as top
choices in preelection surveys get the contributors' nod, to the disadvantage of
less known, but probably better qualified newcomers. The election victories of
movie personalities in the Philippines, the most known of whom was Joseph
Estrada, were in part the result of a scramble for campaign money that
favored popularity over competence.

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286 PHILIPPINE JOURNAL OF PUBLIC ADMINISTRATION

The situation would not be so bad if election spending were closely

monitored, and opportunities to practice extortion are carefully watched. Like
political money, running for office is not a bad thing in itself, but like political
money, it creates the political equivalent of moral hazard.

In the Philippines, transparency in campaign finance is reflected in rules

on party financing. The country's election code sets guidelines and limits on
financial contributions to political parties. But these rules (e.g., low ceiling on
election expenses) are too unrealistic that they tend to provide incentives to
hide rather than declare fund sources. COMELEC, which is mandated to
oversee these matters, lacks the capacity to scrutinize political donations.
Even worse is the fact that, when violations occur, the COMELEC rarely
enforces sanctions (Rocamora 1998).

The government of Corazon Aquino tried to reduce election spending by

banning political advertisements. But this effort failed to halt the explosion
of campaign budgets. Candidates made use of legal gaps that allowed them to
spend huge sums to buy votes or gain the loyalty of local officials, and engage
in other traditional ways of winning public office (De Castro 1998).
Politicians have seized even this small part of good governance agenda, with
Congress lifting the ban on political advertisements. Essentially, it is not
hard to blow 'holes through whatever reforms are introduced. With
COMELEC not being able to scrutinize party records, if they exist at all, the
campaigns no longer adhere to contribution or spending limits. Paradoxically,
as a public body with a clear constitutional mandate, which means it cannot
be abolished by legislation, COMELEC has vast powers to scrutinize, and
enforce limits on, election donations and spending. It is nominally
independent of the Chief Executive and Congress. COMELEC has fallen prey
to politicians' manipulations due to absence of clear sense of purpose,
coherent strategy, short attention span, and fast action for improvement.

State subsidies are still a fact of the future. To be sure, COMELEC

allocates free radio and television time equally and impartially among parties
and candidates, and this can be considered a form of indirect subsidy; other
than this, state assistance to political parties has not been introduced
(Gonzalez 2002). For better or worse, Philippine policy on domestic political
finance has come to rely much more upon vigilance by the press, especially
the PCIJ, individual voters, and civil society-than upon limits or restrictions.
Revelations of illegal campaign donations and various corruption charges
against politicians, including ex-President Joseph Estrada, were results of
efforts of the' PCIJ. Still, the scant data disclosed in an election year make it
difficult to unearth abuses until well after the "paper trail" has led to concrete
evidence and the public has maintained its vigil.

In the end, the variation in institutional outcomes reflected poor choice

of institutional structures. The country's political managers opted for

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REGULATING CAMPAIGN FINANCE IN THE PHILIPPINES 287

institutions such as unstable political formations, first-past-the-post elections,

weak COMELEC interventions which did not demonstrate much
accountability. This suggests the critical importance of policy innovation and
strategic vision in altering the course of development of electoral finance in
the Philippines.

So what else could the Philippines be possibly doing right? The one
important thing going for the Philippines is its romance with civil society.
Civil society is much more developed in the Philippines than in any other
Southeast Asian country. When civil society is franchised, collective action
blossoms, and institutional restraints within the state are let loose, allowing
the country generally to successfully confront internal pressures for reform.
When civil society is repressed, ambitious reform campaigns flounder at the
implementation stage.

Precisely because they have close relationship with communities, and

owing to their non-bureaucratic character, NGOs are obvious wellsprings of
innovation. The existence of campaign finance watchdogs, PCIJ in particular,
can turn the tide against corruption in the use of campaign funds. Yet all is
not well with many civil society organizations. A principal drawback is that
accountability structures among NGOs have been slow to emerge. In contrast
to government agencies which have long life spans, civil society groups, at
least many of them, have brief shelf lives. The price of organizational
flexibility is sometimes an unsure, fly-by-night existence. Some NGOs
assisting in electoral reform had been known to disappear as soon as grants
from donors dry up. Others, like National Citizens Movement for Free
Elections (NAMFREL), are too focused on election reform. NGOs are here to
stay despite fragile structures, and the key to it is to strengthen their
culpability, so that they are made answerable for good governance initiatives,
such as campaign finance reform.

These early choices about the structure of institutions affected the

trajectory of campaign finance. The institutional context is strong on some
"fundamentals"-a fairly developed nationwide election infrastructure, the
presence of an independent and authoritative constitutional body, the
COMELEC which could be responsible for the integrity of all issues regarding
party finance and electoral rules, civil society watchdogs-but is as yet not
strong enough to deliver the minimum necessary underpinnings for long-
lasting reforms.

The challenge is bound to grow, as the risk of maintaining the status

quo, and backstepping even in limited reforms, rise. The astuteness of
powerful economic interests to hold legal, legislative, and regulatory
initiatives at bay could outpace even the constraints imposed by competing
interest groups and the pressure points set up by civil society. Yet the
country can also lock itself in a virtuous circle. The key is making the right

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288 PHILIPPINE JOURNAL OF PUBLIC ADMINISTRATION

policy choices that are mutually reinforcing, and have a demonstrable impact
in reducing weak campaign finance initiatives. Some measures are
distressing, but not irreversible. Decisive leadership can push the necessary
reforms as new gains give the reform program a new credibility.

Crossing the Threshold

Two immediate things make change a likelier outcome than stasis. One
is that pressures to deliver have given the government a continuing motive for
reform, while persuading most other stakeholders, whatever their snarls of
criticism or resentment, not to stand in its way. The second is that the
actions implied by that motive are likely to draw the government into new
acts and new types of engagement, whether it likes it or not.

Since the big challenge is how to dilute the high concentration of power
-by vested interests, the repertoire of reform must gradually expand to include
broader structural interdependence among core state institutions. "Give and
take" between the state and civil society is a must. The key focus of good
governance should be on enhancing political accountability and taking
maximum advantage of a strong legacy of public management. The priorities
should include creating new accountable structures, such as mass political
parties, increasing formal channels of access to decisionmaking,
deconcentrating political and economic power through deeper
decentralization, and enhancing oversight through participatory strategies.

Political accountability is perhaps the most crucial factor which

organizations and constituencies with power to enforce sanctions on them, can
use to restrain the behavior of politicians and public officials. The key is to
increase the cost of making decisions that benefit narrow interests at the
expense of the broader public interest. An important step is to increase the
transparency of electoral funding decisions made by elected officials, followed
by the strengthening of institutions (for example the courts) having the power
to apply credible sanctions to them. In favorable contexts, such mechanisms
can also be created within government bureaucracies by establishing ethics
codes and disciplinary committees, and in the case of COMELEC, better
regulations on disclosure of electoral contributions and expenditures. Civil
society groups can also express their collective demands for transparency and
accountability.

The answer to enforcing effective sanctions on politicians is a meaningful

degree of political competition in the electoral process, channeled through
organizations that provide broad constituencies with vehicles, such as mass-
based political parties, to express their collective demands to political leaders.
Exposes of cases of poor performance associated with high levels of corruption

January-October
 REGULATING CAMPAIGN FINANCE IN THE PHILIPPINES 289

are an effective deterrent to corrupt behavior (World Bank 2000). Philippine

political parties need to build mass membership to encourage a healthily
widespread political participation. The more the electorate is induced to
affiliate with political parties, the better for aggregating and systematizing
the interests of the people (Romero 2002).

Apart from dues-paying members, parties can form around affiliated

organizations, labor unions, guilds, NGOs, among others that contribute funds
"- to the party (Romero 2002). In some countries such as Germany, parties
require elected officials to give a proportion of their salaries to party funds. If
the levy on professional politicians is compulsory and uniform, their
contribution does not give them greater influence on policy than they already
enjoy through their position in the party (The Economist 1999).

But dues and membership fees obviously would fall short of parties' total
needs. If membership fees are set too high, they will discourage potential
members. Parties will likewise be reluctant to bleed their own affiliates and
officials too hard. Like it or not, parties would try to pass the hat around
more widely, raising the question of how far they can go.

In the Philippines, prohibitions on financial contributions to political

parties make it almost impossible for any political party to accept anything.
Under the country's election code, political parties are barred from accepting
donations from the following: foreigners and foreign corporations; public or
private financial institutions; public utility firms; those engaged in exploiting
any natural resources of the nation; those who hold contracts or subcontracts
r
f
to supply the government with goods or services or to perform construction or
other works; those who have been granted franchises, incentives, exemptions,
I, allocations or similar privileges or concessions by the government; those with
government loans in excess of PIOO,OOO; educational institutions with public
grants exceeding P100,000; and officials or employees in the Civil Service, or
members of the Armed Forces of the Philippines.

Experience worldwide suggests that regulation of party funding can be

effective if well-designed, backed by effective sanctions, and accompanied by a
! parallel diffusion of appropriate ethics and norms. There is no single
r prescription for success, but a selection of the following litmus tests,
I'
suggested in World Bank (2000), might prove to be helpful:
'~
, Leave a Paper Trail. Ensure that all donations and other sources of
party revenue are made public, that donors and the amounts of their
donations are identified in the public record, and that candidates disclose
links to lobbyists, as well as sources, types, and amounts of support, both
before and after elections. Expenditures and their purposes should be
similarly published and available for audit.

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290 PHILIPPINE JOURNAL OF PUBLIC ADMINISTRATION

Party financing in the Philippines is one of the more contentious issues

with regard to the regulation of political parties. A new transparent system
for reporting political donations, if introduced in the country, should allow
parties and candidates to hand out receipts for political donations which are
issued by the COMELEC. This measure can provide ruling and opposition
parties with equal chances for political fundraising. To put it in operation,
setting up an acceptable administrative structure will be required of parties
to ensure that political donations are properly used and that accounts are
kept. At the same time, the new anti-money laundering law passed by
Congress can ensure more transparency in political finance by putting under
scrutiny donations exceeding P500,000. As The Economist (1999) argues,
although such measure may not stop would-be influence-peddlers, it ensures
that parties will have to justify any decisions that are in the interests of their
donors.

Because transparency depends crucially on freedom of press so that

right- and wrongdoings on the part of the government can be publicized, a
freedom of information law ought to be enacted by Congress. The public can
demand the disclosure of information regarding campaign finance by invoking
such law. That will reduce the informational problem between principals
(citizens) and agents (politicians and bureaucrats), thus improving
accountability and, particularly, reducing corruption in electoral funding 1I
(World Bank 2001). To be fully effective, however, a freedom of information I

law needs an oversight body. In the Philippine case, the COMELEC, given its
management role in campaign finance, is in a good position to give life to
freedom of information, recognized in the Philippine Constitution but still
needing legislation. 1I
i
Ban the Use of State Resources for Political Purposes. Parties in
government should not use state funds, postal services, cars, computers, or I
other assets for political purposes or in election campaigns. !
The administration party, because of its access to far greater resources
than opposition political parties, is often accused of tapping government
resources, and using the government machinery to support its candidates
(Gonzalez 2002). Yet ruling parties need to be guided by distinct funding
rules. Regulation should draw a line between proper governmental spending
and the use of public money to keep the ruling party in power. For example,
the administration has a right to spend public money to implement party
programs, or to test whether policies are working. But it should be barred
from spending designed to test voters' attitudes to public policies, or to
..
I

persuade the electorate to vote in a particular way (The Economist 1999). For
example, the ruling Lakas-National Union of Christian Democrats (NUCD)
party decides to support a shift to a parliamentary system. It should not, I
I
under normative rules, be allowed to circulate its stand in the referendum ~
using public money.

January-October
 REGULATING CAMPAIGN FINANCE IN THE PHILIPPINES 291

Limit "Soft Money" Donations. The donor restrictions imposed by

COMELEC refer only to elections, thereby excluding those not related directly
to elections. In practice, individuals or corporations wishing to influence an
election could chip in thousands of pesos even on election themes, such as
"issue" advertising targeting or supporting a specific candidate. In fact, in a
non-election year, candidates can produce TV plug-ins that promote
government programs that they sponsor-an obvious way of skirting
campaign advertising rules. In either case, politicians can often evade this
donor restriction with just a reprimand from COMELEC.

In theory, donors can strengthen political parties if they direct donations

at party-building measures, such as funding for political research or for get-
out-the-voter drives. But since "soft money" is not yet formally recognized as
a political good in the Philippines, the country can learn from lessons abroad.
In America, both Republican and Democratic Parties have been using soft
money as a route around existing curbs on "hard money." Spending on
advertisements, for example, ostensibly is about issues rather than
candidates. The collapse of Enron, the energy trading giant which showered
I
I
money on politicians and political parties late last year undoubtedly helped
tip the balance in favor of a new campaign finance law. The new law would

,~ impose limits on this kind of spending by banning soft-money donations from

companies, unions and non-profit lobby groups for such advertisements within
60 days of a general election and 30 days of a primary election (The Economist
2002).

Limit Expenditures. Make party politics as inexpensive as possible.

Usually, the demand exceeds the supply of funds, leading to a search for
funding that may breach legitimate frontiers. There is a lot to be said for
reversing this relationship by imposing legal limits on spending, with actual
expenditures subject to audit and to effective sanctions in the case of breaches
of the limits.

Money can reap political dividends only if it is spent. As The Economist

(1999) suggests, by limiting the ways in which parties can spend money, they
will lose their appetite for raising it in the first place. It cites the case of
Britain which bans paid television and radio advertisements, the idea being to
limit the need to raise funds and to level the playing field. France does so too,
but goes further: it outlaws press advertising, posters, and free phone lines
(Pujas 2000). The Philippines used to be in this league, banning political
advertisements as elections drew near.

In some cases, restricting the amount may yield better results than
restricting the type of spending. In the Philippines, an election reform bill
now pending in the Senate puts limits on voluntary contribution: P100,000 for
individuals and P500,000 for corporations. But this approach of putting a cap
is wrought with practical difficulties. A crucial test is timing: what period

2003

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292 PHILIPPINE JOURNAL OF PUBLIC ADMINISTRATION

should be covered by the spending limit? The Economist (1999) outlines the
dilemma:
Often, the earliest spending is the most effective. Money spent years
before an election on party infrastructure or computerized databases
may pay greater political dividends than a last-minute advertising
splurge. But cumulative limits set several years in advance would
prevent early-spending parties from adjusting their tactics towards the
close of a campaign. In France, all spending in the year before an
election counts towards the limit. In Britain, where the date of an
election is set by the prime minister, often only weeks in advance, the
limits apply only to spending after the official start of a campaign
(1999: 48).

Spending limits in the Philippines are ridiculously low. There is no

question that Philippine political parties cannot observe the ceilings. The
primary difficulty is neither timing nor purpose, but denying the parties the
incentive to set up an accounting scheme that will not detect overspending.

In addition, the limits clearly should apply to parties and candidates.

But disbursements by outside organizations can dwarf the direct spending of
parties and candidates. Political candidates make it a routine to attribute to
third parties the source of funding for campaign materials. Thus, election
posters are "donated by the friends" of the candidate. Establishing an overall
ceiling for third-party spending then allotting the money among different
groups will be a hassle for any regulator. But restricting organizations to a
fixed amount will simply give interest groups the incentive to subdivide so as
to qualify for several spending allowances under various guises (The
Economist 1999).

In the end, it makes no sense to have limits if disregarded. No winning

candidate in the Philippines has ever been disqualified on grounds of
overspending. At any rate, disqualification is not a practical option, especially
since the spending ceilings are unacceptably low. Rather than put a squeeze
on how, and how much, parties and candidates can disburse, a more feasible
alternative is to raise the limits, and simultaneously, raise the penalties.
Making it easier for politicians to comply with the new limits would also make
it easier for them to accept the sanctions.

Consider Public Funding. Many countries have established partial

public funding, recognizing that political parties play a public interest role:
they make an essential contribution to political contestability and the
decentralized expression of diverse values and interests. Public funding
reduces the scope for private interests to "buy influence" and can also help
reinforce limits on spending, because of the electorate's resistance to excessive
public expenditure.

January-October
REGULATING CAMPAIGN FINANCE IN THE PHILIPPINES 293

Public financing can be done through direct financial assistance or

through indirect means like tax relief and credits (Gonzalez 2002). The basic
idea is that, it is worth spending tax money to replace a system that
encourages the unchecked (and therefore corruption-prone) solicitation of
private money. If the Philippines were to subscribe to state finance, one way
is to get it directly from taxpayers. Individuals need not pay any additional
tax, but simply allow the government, as collection agent, to collect a tax
check-off, a small amount of their existing tax, which goes to a government
pool to finance political parties. Or the government can set up matching
funds, where the government matches private donations, usually up to a low
limit, with taxpayers' funds. This can be offered in exchange for parties
agreeing to limit their spending or not accepting, beyond a ceiling, any further
private donations.

In a more complicated setup, such as that in Germany, state help is

made proportional not to parties' fund-raising success but instead, to their
electoral support, usually using a formula based on the number of votes and
seats. Here, though, any formula based on current political representation
will tend to reward the parties and candidates voters chose in the past, rather
than the ones they may wish to support in future. As in private funding, state
funding is fraught with difficulties (The Economist 1999).

Public funding of political parties in the Philippines is gammg

momentum but still has a long way to go. A proposal brought up by House
Speaker Jose de Venecia in a Congressional planning workshop last July 2001
called for a government allocation of P3.5 billion annually for political party
activities. This amount is the equivalent of one-half of one percent of what is
supposedly lost to graft and corruption" (Romero 2002). A new campaign
finance bill filed in the Senate, Senate Bill No. 2442, entitled "An Act
Strengthening Political Party System Appropriating Funds" proposes to create
a state subsidy fund to "augment campaign expenditures and program
operations of accredited national political parties." It proposes a set of
eligibility criteria that seem to follow the German model where the subsidy is
released to each party proportional to the number of seats obtained in most
recent elections, and leaves it to the COMELEC to define the details. The
ground rules will be based on the following:

number of seats gained in the national legislature in most recent

national elections (political representation)

number of political chapters, organizations nationwide and number

of active and permanent members of the party (organizational
strength and mobilization capacity)

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294 PHILIPPINE JOURNAL OF PUBLIC ADMINISTRATION

number of years of existence of the party; ability to field complete

slate of candidates in the past three national elections (performance
and track record)

number of projects and programs related to voters education,

information campaigns on national issues, training and other
constituency-building activities (capability to implement
developmental programs for their constituents).

It is apparent that these qualifying standards would favor dominant

parties and put handicaps to fledgling coalitions. The state subsidy,
moreover, mixes "hard" and "soft" election activities, which could give rise to
accounting nightmares. Allowable "party development" spending covers party
administration, recruitment and civic education; research and policy
development; education and training of members; institution building and
constituent outreach program; and other reasonable logistical and operational
expenses that are essential in strengthening the party. Allowable campaign
expenditures include operating expenses (staffing, setting-up of
headquarters); travel expenses of candidates and campaign personnel;
information dissemination and advocacy; production and distribution of
electoral paraphernalia.

There are several mechanisms that help bring transparency and

accountability to the new system. The schedule of release for party
development activities during non-election year and for campaign subsidy
during election year, could somewhat ease the expenditure tracking problem.
The post-audit to be done by the Commission on Audit offers additional
safeguards. The bill also requires public disclosure of all contributions and
expenditures. These should give strong guarantees against fund manipulation
by political parties. But it is not foolproof.

Public financing has some disadvantages. First, it entails high cost to

taxpayers. Second, it is not a guarantee that the subsidy will tame the
appetite of political parties for private funds. Third, difficulties can arise on
how to introduce "fair" allocation of money among parties (Gonzalez 2002).
There is also the risk that the greater the taxpayer subsidy, the greater the
likelihood that parties will become institutions of the state rather than
voluntary associations of their members (The Economist 1999).

There is little doubt that antidotes against potential inequities and

corruption risks linked to political money are difficult to write into law,
making reform much more challenging. Nevertheless, if the bill becomes a
law, it will be a breakthrough in campaign finance reform, in the sense that
public accountability also implies matching reform efforts with resources and
capacity.

January-October
 REGULATING CAMPAIGN FINANCE IN THE PHILIPPINES 295

This far-reaching legislation could have a powerful impact. But its

enforcement would require strong powers for verification and audit. Further
judicial training and reform are areas worthy of consideration in their own
right. Successful oversight would need a combination of reliable judges,
electoral authorities and an active investigative press. A credible reform
program should be designed to make political parties answerable to a wider
range of constituencies. Strong sources of advocacy and analysis from NGOs
and academic institutions are imperative for building and empowering
constituencies that generate sustained demand for electoral reform.
Initiatives of this sort are powerful impetus for developing performance
benchmarks for political parties, and providing a breeding ground of change
from a rent-seeking-oriented framework to one of service delivery and
accountability.

If public financing does not automatically reduce corruption, it is also

not responsible for corruption. For all its faults, it is a necessary institution
that can prevent social inequalities from being reflected in an unequal access
to politics. Ideally, political financing has to maintain a delicate balance
between the principle of equality (limiting the influence of the richest) and
the principle of freedom of choice (supporting one's preferred party), between
the goal of providing the parties with enough money to carry out their
responsibilities and that of avoiding misuse of funds (Della Porta, et al. 2000).

In principle, devolution of powers from the central to subnational levels

could also contribute to institutional restraints, that is, centrally-driven,
regulatory approach to managing elections combined with the resource-
strapped monitoring capacity of local governments. A parallel trend, that of a
centrally-driven patronage system that creates incentives for local politicians
to break away from their political parties to join the administration's
bandwagon, further compromises local enforcement capability. But the
potential for changes is still there. The key is to parlay the LGUs' own
advantage into a fairly developed system of public administration and trained
public officials, to promote transparency and accountability in campaign
finance within their domain.

Civil society can increase accountability pressures as part of the good

governance agenda. The Philippines has a strong tradition of collective action
as part of the political process. Thus, exogenous pressures and opportunities
will have a powerful impact in reducing state capture and making steady
progress in campaign finance reform. Civil society groups can act as
intermediaries for communication between the populace and the institutions
of state. They can provide the critical tools of public monitoring and
accountability that are essential for placing constraints on politicians and
political parties.

2003

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Finally, it may be worthwhile considering a shift to a parliamentary

system. In the country's presidential form of government, the appointing
powers of the President and control over the disbursement of government
finances create a powerful incentive for politicians to make sure they belong
to the ruling party, thus diminishing chances for a true multiparty system.
Political parties in presidential systems engage in a zero-sum game that
polarizes competition. Thus, US parties are not parties but "political
machines" as they are understood in parliamentary systems. Political science
literature offers the hypothesis that presidential systems produce looser
parties and programs than do parliamentary systems. Parliamentary systems
produce more consolidated parties and programs (Romero 2002).

The Philippine presidential system also creates a situation of multiple,

separately-financed campaigns contesting each of 250 House seats, 24 Senate
races and of course, the presidency. In a parliamentary system, campaigns
radiate from the parties' leadership. Unifying the executive and legislative
branches through a parliamentary structure will force political parties to take
a better and healthier role.

Creating Virtuous Circles

Taken together, the building blocks of electoral finance reform appear

overwhelming, as they entail significant changes in the nexus of relationships
within government and among government, the private sector and civil
society, and in the current policy practices of government. The lock opener is
not a singular capacity to pursue reforms all at once. The choice and
sequencing of reforms must be in harmony with both the limits and the
possibilities of fair governance in the country.

A serious campaign finance reform program cannot be commanded from

the outside, it needs committed leadership from within, specifically from the
topmost levels of the state. While pressure for reform can come from below,
indeed, this can effectively supply a broad social consensus-any effective
program must be supported from the top. Yet, any strategy that relies only on
high-level leadership will be vulnerable to the many uncertainties of the
political process. Marshalling credible commitment should cover key state
institutions and organizations within civil society. Leadership makes. the
difference in devising means for sustaining ends. Broadening the number of
stakeholders in various sectors and encouraging their participation in
decisionmaking can end policy biases, while ensuring that the decisions are
made aboveboard and open to public scrutiny.

In campaign finance, leadership can come from a determined COMELEC

with the clout and resources to launch reforms in its area of responsibility. Of

January-October
REGULATING CAMPAIGN FINANCE IN THE PHILIPPINES 297

course, its reform efforts will require the combined energies of national, local
and civil society key players. Certainly, any leadership will produce mistakes.
The point however is without it, worse things can happen. Leadership is
needed where others cannot be expected to step in so readily and directly.
Paradoxically, even limited reforms also set the stage for state capture,
enabling narrow interests to shape policies to their liking and in the end
undermining public trust and weakening the impetus for further reform. The
lack of bold campaign finance initiatives, in the context of weak leadership,
illustrates the difficulty of emerging from a vicious cycle once it has taken
hold.

Developing dialogues with institutions of government and civil society

are critical for gaining knowledge beyond the narrow limits of the governance
typology employed in this article. Dialogues are also important in building
constituencies. In campaign finance, it is imperative to incorporate
confidence-building efforts among voters, whose frustrations about elections
are widespread, and how workable specific reform instruments are closely
linked to the way in which people have trust in their institutions and in each
other. Trust is an important ingredient of social capital among the public.

Whether an enabling or constraining environment is created, along with

incentives and disincentives for change, would be decisive in the choice and
stepwise implementation of reform initiatives. This requires assessing
political culture, as it relates to the way authority is exercised, and the extent
to which power is deployed across different institutions. Pinpointing where
the discretion is would be a significant step in breaking the links between
money and influence, and reversing state capture. Political finance goes to
the heart of the country's political culture. The high spending abilities of
politicians and the weak powers of parties affect the way political culture
progresses. The culture of governance is also linked to accountability: the
goal is to destroy patron-client structures, especially in political parties, and
replace them with explicit rules.

In sequencing, the early picking of "low-hanging fruits" has the potential

to achieve a considerable impact. Modestly, highly visible gains can provide
levers to sway public opinion and pave the way for more significant results at
a high level. Early disqualification of candidates known to have violated
campaign finance rules" would boost public confidence in the electoral system.
A running public disclosure of candidates' expenses, rather than an after-the-
fact publication, would have a similar salutary effect. Civil society groups can
also alert the public on whether Congress is giving favors (e.g., tax breaks) to
interest groups that contribute heavily to parties and campaigns.

Sustainability has been defined as the resilience to risk of net benefit

flows over time. As demonstrated earlier, stand-alone efforts are likely to be
vulnerable to state capture. Isolated islands of reform can provide valuable

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demonstration effect but may only survive a brief period before being
swamped by inefficiencies at other levels. Initial reforms ought to grow into
more comprehensive programs. These include strengthening COMELEC's
monitoring capability (a core of strong, credible, and independent
professionals could reverse its fortunes), putting more realistic limits on
contributions and spending, assuring the passage of a state financing law, and
generating more accountability in the ranks of civil society organizations
involved in watching over campaign finance. Despite attempts to limit
government's role to enabler and facilitator, it remains the biggest player, in
terms of its own public management stakes.

Sustainability also means digging deeper into the underlying sources of

institutional weaknesses and strengthening institutions that can resist them.
One key measure is to build public service neutrality: ensure that it is
politically neutral and that public servants are neither allowed nor required
to make contributions to political campaigns as a way of obtaining public
sector employment. This will contribute to a meritocratic public service that
will resist party bias and will encourage decisionmaking in the public interest.
Another is to strengthen the lower courts so that campaign finance cases are
decided fairly and with dispatch. As it is, cases drag on and it is no accident
that key decisions on political finance have found their way to the Supreme
Court. Likewise, there is a strong need to strengthen corporate governance.
Restraining business misbehavior obviously will limit the range of public
policies that are potentially "for sale," thus constraining illegal receipt of
political donations.

All systems of political finance involve trade-offs. Parties and candidates

have a legitimate need for money, but risk becoming too beholden to either
individual donors or the state. Even if it were possible to devise a perfect
scheme, implementing it would be difficult. The rules on political finance can
be changed only with the authority of governments consisting of elected
politicians, Politicians will want to change rules only if it is in their interest.
Sust.aining often complicated reforms requires resources and ingenuity that
can see them through to completion over long haul. Changing incentives by
stretching the election cycle making it possible for incumbents to stay longer
and avoid early campaigning, and by shifting to a parliamentary system could
deliver credible fresh outcomes.

While valuable windows of opportunity may arise in specific occasions, it

is necessary to manage expectations and emphasize the long-term character of
reform, such as the mainstreaming of state subsidy, while still taking swift,
decisive actions, such as devising a "catch-up" plan, meant to raise capability
levels in COMELEC. Government must assign budget resources as well as
capable managers to a campaign finance reform program. Civil society can
only give so much of its own. Business associations and NGOs can help in

January-October
REGULATING CAMPAIGN FINANCE IN THE PHILIPPINES 299

identifying priorities and monitoring results, but they cannot deploy the
political will and resources of the state that eventually are needed to create
transparent and accountable institutions of campaign finance. The challenge
ahead is highly regarded but the task will not be easy.

Endnotes

1 Incumbency does not assure reelection (Franco 2000).

2 What can be found are "cadre" members (candidates and their retainers), not "mass"
members.

3For most, and particularly for challengers, party support is often limited or nonexistent.

• Equivalent to 20 percent of the national budget then estimated at P700 billion

5 The current practice is to give the candidate the benefit of the doubt and make decisions
ex-post.

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