(For Jao and all the others who might be interested)
The Philippine president’s valedictory State of the Nation Address (SONA), delivered a little less than a year before he/she relinquishes his/her office to the next person-in-charge, is particularly special in that it allows the president to look back and assess what he/she has done over a period long enough to produce a legacy.
This essay examines four SONA’s of post-Marcos presidents – what may be considered swan songs in the Philippine Congress of the Fifth Republic. These are the speeches of Corazon C. Aquino in 1991, Fidel V. Ramos in 1997, and Gloria Macapagal Arroyo in 2003 and 2009. Ms. Arroyo’s case is special in that her final SONA during her first term as president (20 January 2001 to 30 June 2004) can be considered part of a full presidential term started off by her ousted predecessor, President Joseph Estrada. Her 2003 address was also curiously delivered seven months after she declared her decision not to run for the 2004 presidential elections and just a few months before she reversed that decision.
In this article, I do not intend to validate what the presidents said against what was done in actuality as that will probably be best pursued by economists, public administration scholars, and even people from the media. My goal is to examine the SONA's as rhetorical artifacts, highlight significant conceptualizations that are realized/ expressed in the addresses, and present possible implications of such conceptualizations on present and future public policies.
Having led the restoration of Philippine democracy after the EDSA People Power Revolution ended the Marcos dictatorship, Cory Aquino had had the unique role of setting off the framing of Philippine democracy in the post-Marcos presidential discourse. Several conceptualizations of democracy can be gleaned from her 1991 speech. Among them are the following: THE RESTORATION OF DEMOCRACY IS A NATIONAL ACHIEVEMENT, A STRONG DEMOCRACY IS PEOPLE POWER IN ACTION, and DEMOCRACY IS KEY TO ECONOMIC RECOVERY.
Ms. Aquino described democracy as an achievement – a ‘steadfast, unalloyed’ one, ‘destined…to outlive our problems and deck with the graces of liberty the material progress of our future.’ It is an achievement ‘that is better seen from the disinterested distance of foreign admirers than from the myopic view of those at home who wish to destroy it.’ This conceptualization of democracy as an object of praise and national pride signals what the Aquino presidency deemed as its legacy.
As in her previous SONA’s, Ms. Aquino used words such as ‘restore(d),’ ‘strengthen(ed)’ and ‘enhance(d)’ to describe what had been and can be done with such national achievement. In 1991, she advocated people empowerment as a means to strengthen democracy, explaining that ‘empowering the people… means enlarging their contact with government beyond elections to its daily workings – so that the vast resources of one support the initiatives of the other; and the policies of government are refined by the insights of the people.’ It also ‘means the lives of the people shall be constantly improved and the people themselves empowered by the habit of directing their own government. The constant revision of flawed policies and the wider application of good ones are possible only by bringing together the people and the government.’ And this is perhaps one of the most important conceptualizations of the Aquino presidency: that a strong democracy is people power in action. She exemplified this point by stating that, ‘People empowerment, through people’s organizations, NGO’s, foundations and cooperatives, is the surest means we know to make government mirror the aspirations of the people. We want elections to be just one of the other more effective means to bring the people into government and government to the people, to make it truly a participatory democracy.’ She also presented a rather lengthy exposition of what she called the ‘Kabisig movement’ – what she regarded as people power in actuality. It should be interesting to note that the preceding passage from her 1991 SONA echoes her better known speech before the joint session of the US Congress in September 1986 where she talked of ‘restoring democracy by ways of democracy.’
Even Ms. Aquino’s discussion of 'economic recovery' after the 1986 revolution was reflective of the centrality of ‘democracy’ in her speech. Describing the final years of the Marcos regime she said, ‘By 1985, the economy has contracted considerably, its rate of growth had been negative for two consecutive years. The country was at a standstill, as if waiting only for the last rights to be performed.’ In her final Report to the Filipino People, it was the restoration of democracy in 1986 that accounted for the ‘economic recovery’ or ‘the powerful rebound of the Philippine economy.’ Such ‘powerful rebound’ was however ‘cut off’, ‘strangled’ by the August 1987 coup of military rebels, considered by the administration as among several groups of ‘anti-democratic forces’ including what she labeled in her accompanying report as ‘Major Threat Organizations.’
To Ms. Aquino, the government’s role is to ‘shepherd’ democracy and to encourage ‘active participation of people in government’ while learning from its ‘pitfalls’ and taking advantage of its ‘blessings.’ The following is one of several extracts where Ms. Aquino underscored the importance of people’s participation:
The organized participation of the people in daily government may provide the stabilizing element that government has always lacked. Policies have radically changed with each administration, yet the basic needs of its unchanging constituencies have not been met: less bureaucracy for business, more public services and infrastructure support for agriculture and industry, an economic safety net for the common man. The active participation of the people in government will lend proper direction and continuity to policy. (emphasis mine)
While democracy was the privileged term in Ms. Aquino’s final SONA, ‘global competitiveness’ became the recurring and salient term/concept in Fidel V. Ramos’s 1997 valedictory address. He talked of the need to ‘find our competitive niche’ in a ‘survival-of-the-fittest economic order’ where ‘great opportunities await the intelligent, the self-disciplined, the innovative, the daring, the young bulls, and the tiger cubs’ and which ‘imposes several penalties on the inefficient, the unskilled, the non-productive, the timid, the disunited, and the lame ducks.’ The image triggered by the phrase ‘survival-of-the-fittest economic order’ as well as the deeply polarized representations in Mr. Ramos’s utterances show a kind of social Darwinism present in his interpretation of the globalist discourse.
Mr. Ramos’s emphasis on ‘global competitiveness’ was clearly linked to the discourse of the ‘new world order.’ He exhorted that instead of ‘[r]etreating from the challenge of globalization,’ the government should find ways ‘to ensure that our economy remains vigorous and sustainable – and resilient enough to resist outside manipulations and strong enough to compete in the world. At the same time, we must reinforce the safety nets that we have put in place for our disadvantaged sectors – our poorest classes throughout the archipelago. We must work hard to win our place in the world – because the world will not stop for those who stand idly by on the roadside of development.’
Several conceptual metaphors can be gleaned from the above-mentioned extract. One is that THE GLOBAL ECONOMIC ORDER or THE ‘NEW WORLD ORDER’ IS A SPORTS ARENA which entails that economic competition is a sports, that the Philippines is a global player in the new world order, and that integration in the world economic order is participation in competitive sports.
Also employed in the extract is the conceptual metaphor SPORTS IS A JOURNEY (as evident in the line, ‘the world will not stop for those who stand idly on the roadside of development’) where the source domains of journey, road or path, traveler, speed and agility, and destination are applied to the domains of sports, the arena, player, competitiveness, and goal, respectively.
Combining the two conceptual metaphors can yield the following conceptualizations: that THE GLOBAL ECONOMIC ORDER IS A PATH TO DEVELOPMENT and that GLOBAL COMPETITION IS A NECESSARY JOURNEY TOWARDS DEVELOPMENT IN THE GLOBAL ECONOMIC ORDER.
That the global economic order is a sports arena as well as the inevitable road to development is best reflected in Mr. Ramos’s use of the term ‘pole vaulting’ to refer to the development strategy that the Philippines should pursue even after his term of office. In his final SONA, Mr. Ramos declared:
The plain truth is that we can no longer make do with economic leapfrogging – because other countries are leapfrogging, too. Our aim should rather be to pole-vault into the twenty-first century.
The passage implies that ‘the pole-vaulting strategy’ which is deemed superior to a less elaborate game strategy ‘is the Ramos’s administration’s legacy to future administrations.’ It is a strategy which would supposedly ‘complete the transformation of [the Philippine] economy from an inward to an outward orientation.’ With it, the government will be able ‘to move aggressively to bring our people up to speed with the global economy.’
In his speech, Mr. Ramos reframed democracy in cognizance of the new global order and his administration’s quest for global competitiveness. In his schema, he viewed Philippine democracy as ‘our unique comparative advantage in the new global order’ in that ‘only democracy can release the spirit of enterprise and creativity among our people.’ Moreover, he stated that ‘without freedom, economic growth is meaningless.’ Interestingly, while he echoed some of the democratic values affirmed by Ms. Aquino during her leadership, Mr. Ramos was obviously inclined to appreciate and make use of ‘democracy’ along the lines of the ‘free market’ or ‘market-driven economy’ which was essentially the thrust of new world economic order.
Ms. Arroyo’s 2003 speech differed from those of her predecessors in that she focused on national security. Belligerent rhetoric that used the metaphor of war appeared salient in her SONA. On the one hand, this may be understandable as the president was still reeling from her recent victory over a failed mutiny mounted by some disgruntled members of the military. On the other hand, the militaristic stance may be attributed to the Arroyo government’s earlier declaration of support for the US government-led global war on terror. In her speech, she assured the audience: ‘[Now] we should be at peace: at peace in our countryside, safe in our homes and secure in the communities. But we remain at war. At war against terrorism. At war against corruption. At war against disease. At war against drugs. The greatest menace facing our country today.’ In addition, the president made mention of ‘war against the destabilizers’ referring to the mutineers in the military. By employing the war frame, Ms. Arroyo was able to put national security as the top priority of her administration.
The focus on war on poverty, notes Malaya and Malaya (2004), is ‘emblematic of the country’s status as a developing country.’ It is actually not unique to the discourse of Ms. Arroyo. A military man before his presidency, Mr. Ramos is noted to have declared the following words in his inaugural: ‘We must wage war against poverty the moral equivalent of war.’ What makes Ms. Arroyo’s use of the expression curious and compelling is that it came at a time when her government aligned itself to the US-led global war on terror. The expression seemed to have worked perfectly in conjunction with the Bush government-inspired frame.
In her 2003 SONA, Ms. Arroyo also found the opportunity to discuss ‘the virtues of a modern leader.’ ‘In this setting,’ she asserted, ‘the first virtue of a modern leader is a constant sense of correct perspective, the capacity to retain her original focus, and plod on regardless.’ She added, ‘She must stick to priorities that were carefully chosen. Rather than dump them at every first issue that is recklessly raised.’ This exposition on the virtue of modern leadership seemed to fit well in her use of the war frame that likewise suggested an emphasis on national security (something that was evidenced by her rather lengthy discussion on drugs as ‘the greatest menace facing the country today’ and her exhortation on the need to pass an anti-terrorism law in Congress.)
The complementation of the war frame and modern leadership created a narrative where the underlying conceptual metaphor is: MODERN LEADERSHIP IS ENGAGING IN WAR or more generally, GOVERNANCE IS ENGAGING IN COMBAT. This entails that a MODERN LEADER IS A WARRIOR-GUIDE (somebody who has ‘a sense of correct perspective,’ is consistent with her 'original focus,' and can 'plod on regardless'), WAR IS A NECESSARY JOURNEY TOWARDS ENSURING NATIONAL SECURITY, and that NATIONAL SECURITY IS A PREREQUISITE TO THE GOAL OF ECONOMIC GROWTH.
On another level, the use of a war frame called for national solidarity and unity much needed by the Arroyo administration to ward off elements of discord and to undermine challenges to her legitimacy. These challenges had come from various groups which included, among others, loyal supporters of former President Joseph Estrada – Ms. Arroyo’s ousted predecessor, some members of the military, the communist insurgents, and Moro secessionists. By constructing a national ethos within the narrative of war, any form of dissent would be seen as uncalled for and putting the country at risk. In a way, a war frame was necessary to consolidate her presidential power and assert the legitimacy of her leadership.
A summary of the emphases, privileged terms, and source domains used in the SONA’s of 1991, 1997 and 2003 is shown in the table below
Table 1. Conceptualizations of key/ privileged terms in the 1991, 1997, and 2003 State of the Nation Addresses
Speech | Emphasis | Privileged Term/ Target domain | Source Domain |
Aquino (1991) | Democratic/ participatory governance | ‘democracy’ | People empowerment |
Ramos (1997) | National economy | ‘global competitiveness’ | Competitive sports |
Arroyo (2003) | Peace and order situation | ‘war against terrorism, drugs, etc.’; ‘national security’ | War |
The next table shows the common themes present in the three speeches but with varying conceptualizations. In this table, the conceptual metaphor in CAPITAL LETTERS and in shaded cells indicates which theme was emphasized in a particular speech. On the other hand, the conceptualizations of the less emphasized theme are shown through entailments (not capitalized) gleaned from the analysis of each speech text.
Table 2. Varying conceptualizations of common themes in the 1991, 1997, and 2003 State of the Nation Addresses
Speech | Governance | National Economy | Peace and Order Situation |
Aquino (1991) | A STRONG DEMOCRACY IS PEOPLE POWER IN ACTION | Economic recovery can fully take off in a liberalized and democratic environment. | Insurgents and military rebels are threats to the democratic government; they get in the way of the economic order. |
Ramos (1997) | Philippine democracy is a unique comparative advantage of the country in the global economic order. | THE GLOBAL ECONOMIC ORDER IS A COMPETITIVE SPORTS ARENA | ‘Political stability’ is a prerequisite for economic liberalization which is necessary for the country to compete globally |
Arroyo (2003) | Modern leadership is engagement in war; a modern leader is a warrior-guide | Economic progress can pursued only when there is national security. | NATIONAL SECURITY IS THE GOAL OF WAR AGAINST TERRORISM, DRUGS, etc. |
So what about the 2009 SONA?
The preceding discussion is an important backdrop in the analysis of the 2009 State of the Nation Address, purportedly Ms. Arroyo’s ‘final’ President’s Report to the Nation. Below are my tentative thoughts on the most recent presidential speech in congress:
The SONA of 2009 appears consistent with the persona-centric approach of the SONA in 2003. Considering that Ms. Arroyo’s presidency has been hounded with questions of legitimacy since she assumed power in 2001, it is not surprising that such is the case. While in 2003 she carved a combative modern leader under the frame of a ‘strong republic’ that complemented the ‘global war on terror,’ in 2009 Ms. Arroyo casts herself as a consistently persistent ‘working president’ while lacing her talk with arguably her most combative rhetoric before the Philippine Congress (yet).
Interesting is how such casting is realized in the national address.
At the onset, Ms. Arroyo boasted of ‘economic resilience.’ The term is an interesting evidence of lexical shift in post-Marcos Philippine presidential rhetoric. In the SONA, Ms. Arroyo sustained a discourse on ‘economic resilience’ (‘the story of the Philippines in 2008 is that the country weathered a succession of global crises in fuel, in food, then in finance and finally, economy in a global recession’; ‘Nakinabang ang sandaan libo sa emergency employment ng ating economic resiliency plan.’; ‘We have a strong economy and a strong fiscal position to withstand global shocks’; ‘Today the Philippines is weathering well the storm that is raging around the world.’), a curious lexical as well as conceptual variation from the more familiar ‘economic recovery’ very much employed during the time of her predecessors. This, I hypothesize, is due to changes in context/s (national and global), how the national leader views herself as well as changing ways of constructing the national situation. In other words, as in any speech or written discourse, there is proof of the complex interplay of texts and contexts in this year’s President’s Report to the Nation.
It appears though that image building, specifically, the restoration of a perennially challenged presidency, is what instigates this lexical and conceptual shift. The incumbency, after all, has to carve an image distinct from its predecessors and that would help establish – at least discursively – its place in history. Considered the most unpopular president since the dictator Ferdinand Marcos, Ms. Arroyo appears resolved to redeem her presidency by bolstering her image on the one hand, and denigrating her critics on the other.
Ms. Arroyo’s 2009 address employed very pronounced strategies of othering by lashing out at her critics – vilifying them, rendering them as delusional (‘And I have never done any of the things that have scared my worst critics so much. They are frightened by their own shadows.’), power hungry (‘Many of those who accuse me of it tried to cling like nails to their posts’), hypocritical (‘Many who accuse me have lifestyles and spending habits that make them walking proofs of that crime’), and failures (‘They had the chance to serve this good country and they blew it by serving themselves.), on the one hand, while bolstering her image as a working president who has achieved what her predecessors had failed to do (‘Those in the past administrations conjured the demon of foreign debt. We exorcised it’; ‘The average GDP growth from 2001 to the first quarter of 2009 is the highest in 43 years’), on the other.
She reinforced the rhetoric or should I say the political myth of ‘the working president’ (‘I did not become President to be popular. To work, to lead, to protect and preserve our country, our people, that is why I became President.’) by casting herself as governance-driven (‘Some say that after this SONA, it will be all politics. Sorry, but there’s more work.’), as a national interest-oriented adviser (‘As the campaign unfolds and the candidates take to the airwaves, I ask them to talk more about how they will build up the nation rather than tear down their opponents. Give the electorate real choices and not just sweet talk.’), as the captain of the ‘ship of state’ or direction setter (‘Meanwhile, I will keep a steady hand on the tiller, keeping the ship of state away from the shallows some prefer, and steering it straight on the course we set in 2001.’), as having exemplary work ethics (‘There isn’t a day I do not work at my job or a waking moment when I do not think through a work-related problem. Even my critics cannot begrudge the long hours I put in. Our people deserve-a-government that works just as hard as they do.’), and by denying that she is a lame duck president (‘At the end of this speech I shall step down from this stage, but not from the Presidency. My term does not end until next year. Until then, I will fight for the ordinary Filipino. The nation comes first. There is much to do as head of state—to the very last day.’). She did the same by rendering her presidency as a do-gooder (‘Had we listened to the critics of those policies, had we not braced ourselves for the crisis that came, had we taken the easy road much preferred by politicians eyeing elections, this country would be flat on its back. It would take twice the effort just to get it back again on its feet—to where we are now because we took the responsibility and paid the political price of doing the right thing.’); a facilitator of development (‘Real government is about looking beyond the vested to the national interest, setting up the necessary conditions to enable the next, more enabled and more empowered generation to achieve a country as prosperous, a people as content, as ours deserve to be.’); and a resources generator/problem solver (‘We only know that we have generated more resources on which to draw, and thereby created options we could take.’), among others.
Quite notable in her strategy of othering is emphasizing certain national values while de-emphasizing others. For instance, she talked of defending democracy by strength (‘arms,’ ‘firmness,’ ‘law and order,’ ‘wise policies of economic progress’) which somehow contrasts with Ms. Aquino’s emphasis on strengthening democracy through ‘organized participation.’ From the following extract, Ms. Arroyo appears to dismiss such rendering (democracy as participation) as nothing but ‘empty liberty’ in contrast to her definition of democracy as ‘a full life for all’ achieved in a ‘strong republic’: ‘As I have shown, I will defend democracy with arms when it is threatened by violence; with firmness when it is weakened by division; with law and order when it is subverted by anarchy; and always, I will try to sustain it by wise policies of economic progress, so that a democracy means not just an empty liberty but a full life for all.’
There is definitely more to the SONA than the formulaic responses we normally get from both the president’s staunch admirers and critics. What is crucial for those who dare listen/read the SONA is to tease out and make evident the often ‘naturalized’ conceptualizations that may or perhaps, will be transformed into such ‘non-negotiable materialities,’ into more ‘authoritative contexts,’ into what would later be long-standing public policies that have definite impact, positive or otherwise, on people’s lives.