PART I

Introduction
01
A Plan for Economic
and Social Transformation
CHAPTER 1

A Plan for Economic and Social

Transformation
“By 2040, the Philippines shall be a prosperous, predominantly middle-class society where no one
is poor. Our peoples will enjoy long and healthy lives, are smart and innovative, and will live in a
high-trust society.”

AmBisyon Natin 2040

Filipinos aspire to have a life that is strongly rooted, comfortable, and secure (matatag, maginhawa,
at panatag). Since the articulation of this vision in 2015, there have been improvements in key
indicators, notably in the reduction of poverty incidence and increase in per capita income. However,
the coronavirus disease (COVID-19) pandemic has rolled back some of these gains and revealed the
fragility of these achievements. Even as the country is still in the early recovery stage from the pandemic-
induced economic and social losses, and as we continue to learn to “live with the virus,” we are acutely
aware that the challenges ahead have evolved and multiplied. This means that changes will have to be
made to the way we do things—to how economic and social interactions and transactions are done,
how public services are delivered, how rules and regulations are enforced, and so on—the so-called
“new normal.” While some advantaged individuals and businesses have begun the transition to the
“new normal,” many more have not. Thus, what we need is a coherent Plan for Economic and Social
Transformation (henceforth, the Plan) that accelerates economic and social recovery toward inclusive
and resilient prosperity.

The Plan will fully consider the lessons learned from the pandemic…
As we formulate the Plan for Economic Second, we learned that everything and
and Social Transformation, we need to everyone are interconnected, and that there
take stock of the lessons learned from our are advantages to having strong interlinkages.
pandemic experience. This extends to the interdependence between
the health of the economy and the state of
First, maintaining robust macroeconomic its healthcare system. The Plan, therefore,
fundamentals, which fosters consumer and must include strategies to strengthen these
investor confidence, is key to achieving interlinkages and make them robust.
rapid economic recovery and preventing
socioeconomic scarring. The Plan must Third, there are limits to government
therefore include strategies that would ensure resources and capabilities; hence, government
macroeconomic stability and sound fiscal needs to engage meaningfully with various
management to keep consumer and investor sectors to deliver the needed interventions.
confidence in the economy high. The Plan, therefore, must include strategies to

Chapter 1 A Plan for Economic and Social Transformation | 5

enhance collaboration with local government systems, efficient social protection programs,
units and partnerships with the private sector effective resilience-building strategies,
and civil society. research and development, technology–
particularly digital technology–and
Fourth, though recovery has started, we need innovation.
to fast-track investments in early warning

…while addressing the scarring due to COVID-19.

In 2020, COVID-19 was declared a global The lockdowns led to large financing needs
pandemic and the country went into one of to support families and businesses. Coupled
the world’s longest and strictest lockdowns with low revenue collection due to business
beginning March of that year. For more than closures, these resulted in a record-high
a year, most of the country was under some PHP1.67 trillion budget deficit and higher
form of mobility restriction: people were levels of borrowing with debt-to-gross
not allowed outside their homes; offices and domestic product (GDP) ratio climbing to
businesses closed down; public transportation 60.4 percent by the end of 2021 from only
was limited; and schools shifted to remote 39.6 percent in end-2019. Government
learning. In the second quarter (Q2) of 2020, expenditures increased due to direct cash
the economy saw its deepest contraction transfers and COVID-19 response-related
at –16.9 percent. The unemployment rate costs such as: procurement of COVID-19
jumped to 17.6 percent in April 2020, and test kits and personal protective equipment
underemployment hit a high of 21 percent in (PPE); hiring of more health personnel; and
mid-2021. Positive growth was not seen until purchase and nationwide deployment of
Q2 2021, rebounding to 12.1 percent and COVID-19 vaccines.
nearly 7 to 8 percent in succeeding quarters,
while the labor situation steadily improved Aside from the economic contraction, the
over time. pandemic also resulted in significant social
sector losses, which may be harder to recoup.
In response to the immediate need for relief, These include learning losses, low levels of
Bayanihan 1 (Republic Act 11469) and routine vaccinations,1 and the slowdown
Bayanihan 2 (RA 11494) were enacted, and of healthcare-seeking behaviors in the
the national government initially rolled out population, among others. For two academic
support to 80 percent of Filipino families years, learners from preschool to tertiary
nationwide through cash transfers that levels coped as best they could through
were good for two months. These were later remote and blended learning modes instead
dialed down, both in terms of the amount of face-to-face classes. Worse, an estimated
and portions of the population assisted, in five percent of primary school-aged children
the latter part of the pandemic. In addition, in the Philippines did not enroll in 2022
various forms of support were included in while 91 percent may not be able to read or
the Bayanihan Acts, including support to understand short and age-appropriated text
employees, and to micro, small, and medium by age 10.2 The full impact of this erosion
enterprises (MSME). in human development will not be apparent
until years later, and, if left unaddressed, will

6 | Philippine Development Plan 2023-2028

lead to poor education and health outcomes later, especially those in poor rural areas
for a generation of children. Rebuilding and and hard-to-reach communities, such as the
catching up will require strong prioritization Bangsamoro Autonomous Region in Muslim
of education and health to prevent a Mindanao (BARMM). The latest poverty
more lasting negative impact on human estimates show that the country’s gains in
development. poverty reduction from 2015 to 2018 were
partially reversed as the poverty incidence
Both the economic and social impacts of in 2021 increased to 18.1 percent, up from
the pandemic disproportionately affected 16.7 percent in 2019, but remained lower than
the poorest and most vulnerable: many lost the 23.5 percent poverty incidence in 2015,
their incomes, and children who did not largely due to the government cash transfers
have the means to learn with digital devices targeted to low-income households.
experienced learning losses. They were also
more likely to receive COVID-19 vaccines

The Plan will build on “tried and tested” strategies…

The significant reduction in poverty Government spending on education and
incidence observed between 2015 and 2018, health increased by an average of 14 and
from 23.5 to 16.7 percent, was a result of fast 13 percent, respectively, over the period
economic growth that was sustained over six 2013–2019. The program for basic education
years; increased human capital investments; was revised with new content and an
and the expansion of the Pantawid Pamilyang additional two years. Tertiary education
Pilipino Program (4Ps) beginning 2013, with in state universities and colleges was later
its enhancement beginning 2016. provided for free. Scholarship programs
were also expanded, including in technical
Gross domestic product grew by an average and vocational education and training
of 6.6 percentage points over the period (TVET) institutions. Health care provision
2012–2019. This was the by-product of an was enhanced with the implementation of
agenda of good governance, level playing the Health Facilities Enhancement Program.
field, and ease of doing business. The agenda Health care financing was later expanded
was later institutionalized either through through the establishment of Malasakit
legislation or executive order. Centers.

Government spending on infrastructure Coverage of the 4Ps increased from 630,000

increased, averaging 2.6 percent of GDP from households in 2009, to 3 million in 2012,
2013 to 2016, to 4.6 percent of GDP from 2017 then 4.4 million households in 2016. The
to 2019. Many of the infrastructure projects, amount of cash transfers also increased in
including those under the Build, Build, Build 2016, mainly to maintain the real value of the
program of the administration of former transfers as provided in 2012.
President Rodrigo Roa Duterte favored regions
outside the National Capital Region. Fiscal health was improved through
aggressive tax reforms, which were intended
to make the tax system simpler and fairer.

Chapter 1 A Plan for Economic and Social Transformation | 7

The Tax Reform for Acceleration and petroleum products, the new excise tax on
Inclusion (TRAIN) reduced personal income sweetened beverages, and the repeal of over
tax rates but also broadened the tax base. 50 provisions on value-added tax exemptions
TRAIN resulted in additional net revenues and zero-rating.
because of the increase in excise taxes on

…and will take on “unfinished business”…

Several long overdue reforms have also been COVID-19-induced losses, we have yet to see
passed. The Rice Tariffication Law (RTL), the full impact of the more open investment
which was stalled for about 30 years, was climate promoted by these liberalization laws.
enacted in February 2019 to alleviate the
2018 rice supply crisis and modernize the Many social sector reforms, while critically
agricultural sector. While rice yield has important, are not yet fully implemented. The
increased from 3.9 to 4.1 metric tons per government has already taken initial steps
hectare pre- and post-RTL implementation, toward digitalization and financial inclusion
respectively, the rice industry road map is yet through the Philippine Identification
to be finalized. System or PhilSys Act (RA 11055). However,
PhilSys processes need to be expedited. As
Amendments to the Foreign Investment of December 31, 2022, Step 2 cumulative
Act (FIA), Retail Trade Liberalization registration to PhilSys has reached
Act (RTLA), and the Public Service Act 75.7 million individuals, which is 82.3 percent
(PSA) were also enacted into law, intended of the target 92 million individuals for 2022.
to further ease restrictions on foreign More than 55 million PhilSys numbers
investments, especially in strategic industries. have been generated, 23.7 million ePhilID
Also enacted during the pandemic was the cards printed, and 21.4 million PhilID cards
Corporate Recovery and Tax Incentives delivered.3 Another crucial reform, the
for Enterprises Act (CREATE), which Universal Health Care Act (RA 11223), which
lowers the corporate income tax rate and registers all Filipino citizens to a national
provides incentives to strategic industries health insurance program, is still in the
irrespective of ownership. However, because process of developing a progressive health
the effectivity of these laws coincided with care system within the next six years.
the global economic slowdown due to

…while taking full cognizance of emerging global and regional

trends.
The unprecedented health crisis changed emerging patterns that may pose risks as well
the status quo of health care, economic as opportunities to the country’s development
management, and technology, among others, in the upcoming years.
across the globe. This section evaluates

8 | Philippine Development Plan 2023-2028

Health and Social Trends
Continued impact of COVID-19
The pandemic has been a traumatic crossed borders. In fact, the characterization
experience to many, particularly as it of the “new normal” is still unclear; it
evolved from a purely health crisis to varies widely from going back to the “old
a multidimensional one, revealing an normal,” to imposing minimum or strict
interconnected set of problems. While public health standards particularly in the
mortality and hospitalization figures 3Cs (crowded events, closed spaces, and
began to decline globally due largely to close-contact activities).
vaccination, new strains have emerged and

China’s dynamic Zero-COVID policy

Some countries continue to uphold stringent international travel for Chinese tourists. The
mobility restrictions that may generate both latter proved critical as tourism in Southeast
local and international implications, such Asia and East Asia is highly dependent on
as in tourism. For instance, China has been the Chinese market of tourists. Outbound
implementing its “dynamic zero” COVID tourists from China were the world’s biggest
policy that includes imposing unpredictable spenders in 2019, comprising 20 percent of
lockdowns to curb COVID risks, which global tourism spending.4
in turn dampened both domestic and

Aging global population

Notwithstanding the pandemic, the in 2020 to about 1.4 billion in 2030.6 This is
global trend is geared toward longer life expected to further rise and reach a total of
expectancies and generally healthier 2.1 billion aged 60 and over in 2050. Much
populations, combined with lower of this global ageing has been driven by
fertility (50% decline in the past 70 years many industrial countries, but increasingly
alone),5 which are among the factors that in the next three decades, many developing
contribute to global ageing. The World countries, including the Philippines,7 will
Health Organization (WHO) forecasts follow this trend. Up to two-thirds of the
that in 2030, one in six people worldwide world’s population aged 60 years and over will
will be 60 years old or over—an increase be accounted for by low- and middle-income
in total from one billion aged 60 and over countries in 2050.

Increasing demand for health care workers

Recognizing the critical importance of a temporary ban on the deployment of
health care workers (HCW) in the fight health workers in April 2020.8 This has
against COVID-19, the government imposed since been relaxed from implementing a

Chapter 1 A Plan for Economic and Social Transformation | 9

total deployment ban to instituting a cap government hospitals; while it could rise to
on deployment of 7,500 HCW per year.9 as much as PHP275,000 in the United States
Demand for HCW has been amplified by the (US). The wage offer in advanced economies
pandemic, especially in advanced economies is expected to increase with the growing
with aging populations. This translates into demand for health care, making it more
a huge wage differential. For instance, the attractive for Filipino health workers to go
base salary for nurses in the Philippines abroad. This may adversely affect access to,
ranges from an average of PHP17,000 in and quality of health care in the country.
private hospitals to around PHP35,000 in

Economic Trends
Headwinds in global economic recovery
After more than two years of the pandemic, Many industrial and developing countries
the world economy is still struggling to get accumulated debt to finance countercyclical
back on track. The International Monetary fiscal and social protection responses
Fund (IMF) forecast global growth in 2022 to COVID-19. Total global debt rose by
at 3.2 percent, a significant decline from 30 percentage points of world GDP in 2020
the 6 percent rebound posted in 2021. alone; the largest single-year increase in
Global growth is expected to fall further world debt since the 1970s. In the same
to 2.7 percent in 2023, with a 25 percent year, the total debt breached 200 percent of
probability that it could fall under 2 percent. GDP in emerging markets, while total debt
The three largest economies in the world— topped 300 percent of GDP in industrial
the US, European Union, and China— countries.12 The surge in sovereign debt
are all expected to struggle with their spreads and monetary policy tightening
immediate post-pandemic economic growth among in countries to temper inflationary
recovery. In addition, almost half of more expectations have since created pressure on
than 70 economies monitored by the IMF borrowing costs for many emerging market
are expected to face a technical recession, economies and developing countries. The
measured as at least two consecutive strength of the US dollar, driven in part by
quarters of economic contraction, in the the Federal Reserve’s monetary tightening as
upcoming year.10 This uneven recovery, well as the “flight to safety” during volatile
shaped by the various factors discussed in this times, is likely to create additional pressure
chapter, affects major commodity supplies. on both domestic inflation (due to exchange
International supply chains, still recovering rate pass-through) and on borrowing costs
from the pandemic, are also less predictable for many countries.
given the uncertainty of the international
economic environment.11

10 | Philippine Development Plan 2023-2028

Geopolitical Trends
Ongoing international tensions
By early 2022, geopolitical, environmental, conflict between China and Taiwan; and
and food security risks began to conflate lingering disputes in the South China Sea.
the pandemic-related challenges, further An escalation of the conflicts in the South
hindering inclusive recovery. The China Sea would be devastating to the
intensification of the Russia–Ukraine conflict global economy as the area accounts for
on February 24, 2022, created ripple effects 12 percent of the world’s fish catch, and more
that affected an already weakened global than 30 percent of all global maritime trade
economy. Both Russia and Ukraine are passes through it. About 40 percent of the
important international suppliers of food and world’s liquefied natural gas shipments also
other key commodities, such as wheat and traverse the South China Sea, which also
sunflower oil. Russia is also the third largest contains deposits of about 11 billion barrels
oil producer in the world and accounts for of oil and 190 trillion cubic feet of natural
ten percent of total global oil production. gas.14 Any potential maritime conflict poses
The resulting oil price increases have created a huge threat, as the world’s coastal regions
knock-on effects on transportation costs and contribute about USD1.5 trillion to the global
goods trade.13 economy each year—a number expected to
double by 2030 to USD3 trillion based on
There are also other potential dangers from estimates by the World Trade Organization
geopolitical tensions in Asia. These include: (WTO).15
recent tensions in the Korean peninsula;

Shifts in Asian investments and manufacturing

Many foreign investors are recalibrating consequently, reshaping the investment and
their investment portfolios in China, often trade landscape underpinning vibrant GVCs
with a view to relocate to Southeast Asia.16 in the Asian region.
These shifts are not new as the relocation of
some foreign investments from both Japan In October 2022, the US imposed sweeping
and China even preceded the COVID-19 restrictions on technology exports to China,
pandemic.17 Pre-existing factors shaping such as computing chips, supercomputers,
global value chains (GVC) in Asia include and advanced semiconductors.19 Several
the intensifying trade conflicts among major Southeast Asian countries have started to
trading partners since 2018; increased ramp up incentives for new companies in
automation that triggered the return of some anticipation of foreign manufacturing firms
production to industrial countries; and leaving China. For instance, the Philippines
increased costs of production in China.18 provided investment incentives that attracted
Most recently, geopolitical tensions between at least nine multinational enterprises to
China and some western economies, and relocate their respective manufacturing
China’s stringent anti-COVID-19 policies facilities from China since 2019.20
are likely accelerating this shift and,

Chapter 1 A Plan for Economic and Social Transformation | 11

Environmental Trends
There has been a dramatic shift in the world’s to 1.5 degrees.23 In an unprecedented move,
weather patterns and temperature records during the COP27 held in November 2022
are now routinely being set every three in Egypt, several European countries agreed
years since 1981.21 According to the World to establish a loss and damage fund, which
Meteorological Organization, economic extends financial assistance for rescue and
losses from weather-related disasters reconstruction in developing countries as a
increased sevenfold from the 1970s to the result of extreme natural disasters brought by
2010s. All these trends are interconnected climate change.24
with more frequent and more intense weather
events such as hurricanes, wildfires, and heat In the present post-pandemic and
waves taking place around the world. economic environment, governments
will be hard-pressed to deliver on climate
International collective action to respond change commitments on their own. There
to climate change will be tested by the needs to be greater synergy in central and
challenging global economic recovery local government policy and regulatory
conditions in the medium term. In the 2021 frameworks, supported by research and
Glasgow Climate Pact during the 26th United development (R&D), to fulfill these
Nations Climate Change Conference, more commitments. A scenario where trade and
commonly referred to as COP26,22 almost investment flows will favor those between
200 countries committed to make the 2020s and among economies strongly committed to
a decade of climate action and support. accelerated climate action is highly likely. This
Industrial countries have pledged USD100 will then induce the private sector to put in
billion annually for developing countries, more resources and even to lead parts of the
with the goal of reducing emissions and overall response.
capping the global average temperature rise

Technology and Regulations

Rapid digitalization across the globe
Many development opportunities have also government and in the private sector. In the
emerged in recent years, even during the public sector, this enabled service continuity;
pandemic aftermath. For instance, in part while in the business sector, business
due to the successful adaptation strategies continuity meant having to switch from
during the pandemic, various countries relying on foot traffic to online traffic.25
were able to tap their domestic industries
for innovation and repurposing to help in Technology and intellectual property are
the whole-of-nation effort to respond to the among the key areas increasingly featured
pandemic. COVID-19 has also served as a in international trade and investment
catalyst for fueling a wave of digitalization in discussions. Due to the nature of
technology-driven industries and sectors,

12 | Philippine Development Plan 2023-2028

these discussions are inevitably intertwined people to economic opportunities; reduce
with issues on network externalities, export and transaction costs significantly;
competition policy, intellectual property, and and aid in building international consensus
even national security.26 through regional negotiations.27 The RCEP
also includes commitments to bolster
For example, the Regional Comprehensive e-commerce by protecting online consumers
Economic Partnership Agreement (RCEP) and their personal information and
—which has been signed by almost all strengthening regulatory frameworks, notably
ASEAN countries plus Australia, China, in areas of transparency and cybersecurity.28
Japan, Republic of Korea, and New Zealand— Countries, including the Philippines, will
supports information and communications need to navigate these international trade and
technology (ICT)-enabled trade facilitation investment agreements to maintain robust
measures, promotes free cross-border flow connections to evolving global value chains,
of data, and accommodates less stringent which will be largely shaped by advances
approaches to data localization. Leveraging in technology and emerging standards and
cross-border data transfers has been lauded as regulations.
a way to: grow the global economy; connect

Global megatrends for 2030

Even prior to the pandemic, various these investments offer opportunities for
groups pointed to global megatrends that transformation in various sectors.
could shape the decade in fundamental
ways. In its Global Connectivity Outlook Electric vehicles can shift demand from fuel
report, the World Bank noted several to batteries, while autonomous vehicles have
main messages for policymakers and the potential to improve road competitiveness
planners.29 Disruptive technologies do not and transport logistics. With renewable
just promise improvements in connectivity, energy becoming increasingly attractive and
but also innovation in how connectivity attainable, energy-related shipping for coal
is formed and used. Long-term planning and oil are also estimated to decrease by 50
of infrastructure and resource allocations and 25 percentage points, respectively. As
must not assume a continuation of past a result, there may be limited demand for
trends but constantly adapt to the evolving new investments for coal or oil transport
digital and technological landscape of the infrastructure in the next few years. Finally,
Fourth Industrial Revolution or Industry 4.0. the effects of additive manufacturing remain
Changing consumption patterns, as a result uncertain. Freight volume may depend on
of the rising urban middle class population in the difference in price sensitivity for these
Asia, can result in the flow of infrastructure types of products. Lower- and middle-income
investments to the region. Meanwhile, groups that may be more conscious of
investments in digital capacity through the prices can lead to growing flows in freight;
Internet of Things (IoT), artificial intelligence, whereas a decline can be expected among
mobile internet, and Big Data analytics are upper-income countries willing to spend on
encouraged. Disruptive technologies from these products.

Chapter 1 A Plan for Economic and Social Transformation | 13

More broadly, the available analyses of expected to be underpinned by connectivity,
global megatrends point to the role of digitalization, automation, IoT, and big data,
technology and its disruptive effects, and among others. Technological surveillance,
the opportunities for enhancing economic R&D, and learning-by-doing will be critically
development and well-being of millions. important activities to inform policymaking
The Fourth Industrial Revolution is and business strategy.30

Overview of the Philippine

Development Plan 2023-2028
The Philippine Development Plan (PDP) The PDP 2023–2028 is based on President
2023–2028 is a plan for deep economic and Ferdinand R. Marcos Jr.’s 8-point
social transformation to reinvigorate job socioeconomic agenda that tackles
creation and accelerate poverty reduction by immediate, on-the-ground concerns—high
steering the economy back on a high-growth inflation, scarring due to COVID-19 and
path. This growth must be inclusive, the tight fiscal space; address long-standing,
building an environment that provides equal critical constraints to generating more jobs,
opportunities to all Filipinos, and equipping quality jobs, and green jobs over the medium
them with skills to participate fully in an term; and provide the necessary enabling
innovative and globally competitive economy. environment—level playing field, and peace
and security.

The underlying theme of PDP 2023–2028 is

transformation…
Taking off from the lessons learned better data systems that will create better
especially during the pandemic, the PDP programs, such as more targeted social
2023–2028 takes on the underlying theme of protection enabled by the national ID
transforming the economic and social sectors through PhilSys; and better link job seekers
and institutions for a prosperous, inclusive, to employment opportunities through the
and resilient society. The transformation expansion of the automated job and applicant
agenda is broken down into: matching system, PhilJobNet, created by
the Department of Labor and Employment
Digitalization. Digital transformation of (DOLE). Compliance with regulations may
government will result in more efficient and also increase with digital filing and digital
faster service delivery to the people, more payment systems.
transparency, and fewer opportunities for
corruption at various levels. Digitalization The COVID-19 pandemic has forced a wave
can also help the government build of digital adoption across the country. An

14 | Philippine Development Plan 2023-2028

important development is that as more processes. This requires an ecosystem
institutions and businesses digitalized, involving knowledge and R&D institutions,
the proportion of consumers that entered product and process design, marketing, and
the digital marketplace has also expanded entrepreneurs. Government will support the
rapidly. The rapid and massive migration creation of innovation ecosystems and their
of people into the digital space is an evolution to becoming a dynamic ecosystem
opportunity to push toward fully digitalizing that eventually generates not only more, but
sectors that have not been able to pivot quality jobs.
their processes to maximize the potential
efficiency brought about by digitalization. Enhanced Connectivity. As an archipelago,
the Philippines has unique challenges with
Servicification. Servicification fosters inter- connectivity. Digital connectivity is only
sectoral linkages to create synergies for more one form, as physical connectivity through
value-adding opportunities, expansion of infrastructure and transport is similarly
products and markets, and more efficient important to link markets to each other;
delivery network. The Philippines has connect urban centers to rural areas; and
had a strong competitive advantage in facilitate the movement of people whether
services, which has accounted for a large for employment, business and marketing
proportion of GDP and employment both transactions, or even socialization and
domestically and internationally, albeit in recreation. Communities should be linked to
lower productivity jobs. Where the country these opportunities through the development
has been unable to compete successfully is in of local road networks that reduce the costs of
expanding manufacturing, which, for many transport, while also adopting active mobility
other countries, has been the driver of job options and e-vehicles.
generation. The evolution of these sectors has
In addition to investing in connectivity
blurred the line between manufacturing and
domestically, there are also opportunities to
service jobs, as manufacturing now requires
ramp up the connectivity of the country to
more service-related labor, which has become
the rest of the world. Increasing the capacity
more mobile and transmittable via digital
of airports can revitalize tourism; upgrading
means.31
ports and improving maritime safety can
Servicification as a strategy means pursuing facilitate the movement of goods, thereby
policies that will build ecosystems around promoting trade and making the country
economic clusters identified as potential more attractive to investments.
sources of high growth, to attract more
Greater collaboration between local and
investments and expand its demand
national government. The PDP seeks to
for higher productivity jobs. Priority
bring local governments in as equal partners
servicification can also be targeted toward
in the development agenda of the country. As
the industries of ICT, creatives, tourism, and
frontline service providers, LGU performance
logistics to move up the global value chain.
can spell the difference between regional
Dynamic Innovation Ecosystem. Innovation development and regional stagnation.
will translate knowledge and ideas into
new products, and/or new and better

Chapter 1 A Plan for Economic and Social Transformation | 15

One of the major developments in the capacity for delivering public services and
governance landscape of the Philippines is raising local revenues.
the Mandanas-Garcia ruling of the Supreme
Court in 2018. The ruling meant that the Partnership with the private sector. There
internal revenue allotments (IRA) of local are multiple areas to expand the role of the
governments would increase by about private sector to deliver more benefits to the
23 percent in keeping with the spirit of the public. The government’s role is to provide
Local Government Code of 1991.32 This led to calibrated incentives to priority industries
a “re-devolution” of programs and functions and foster an enabling business environment
to local government units (LGU) as national to allow job-generating businesses
agencies faced smaller budget allocation. and industries to grow. Reconfiguring
public–private partnerships (PPP) can also
Operationalizing the Mandanas-Garcia ruling help in addressing cross-cutting issues of
is an opportunity to optimize the sharing a weak competition environment and the
of responsibility between local and national digital divide, as well as boost the country’s
government. Over the medium term, campaign to attract foreign investments. The
there will be close coordination through tight fiscal space that will constrain public
capacity-building programs and mentoring investments for the next few years provides
for LGUs, especially in areas where national a rationale for favoring PPPs in enhancing
government support will be needed. These and upgrading infrastructure. Larger private
include important human development sector participation in areas such as housing,
investments, notably in health, social welfare, transport, digital, and other related large
disaster resilience, and local infrastructure. infrastructure can free up public funds for
Thus, the completion of Devolution investments in human capital to address, for
Transition Plans (DTP) will be fast-tracked instance, the scarring from the pandemic in
and operationalized to improve each LGU’s health care and education.

…that is integral in all the strategies of the

PDP.
The overarching goal of the PDP 2023– and (c) foster an enabling environment
2028 is to achieve economic and social encompassing institutions, physical and
transformation for a prosperous, inclusive, natural environment, which promotes a
and resilient society. The strategies are prosperous, inclusive and resilient society.
organized corresponding to the following
objectives: (a) develop and protect capabilities
of individuals and families; (b) transform
production sectors to generate more quality
jobs and produce competitive products;

16 | Philippine Development Plan 2023-2028

Figure 1.1 Strategy Framework of Philippine Development Plan 2023–2028

MATATAG, MAGINHAWA, AT PANATAG NA BUHAY

ECONOMIC AND SOCIAL TRANSFORMATION FOR A PROSPEROUS,

INCLUSIVE, AND RESILIENT SOCIETY

DEVELOP AND PROTECT CAPABILITIES TRANSFORM PRODUCTION SECTORS TO GENERATE

OF INDIVIDUALS AND FAMILIES MORE QUALITY JOBS AND COMPETITIVE PRODUCTS

REDUCE
PROMOTE HUMAN INCREASE MODERNIZE
VULNERABILITIES AND REVITALIZE REINVIGORATE
AND SOCIAL INCOME-EARNING AGRICULTURE AND
PROTECT PURCHASING INDUSTRY SERVICES
DEVELOPMENT POWER
ABILITY AGRIBUSINESS

BOOST HEALTH ENSURE FOOD INCREASE PROMOTE TRADE AND INVESTMENTS

SECURITY AND EMPLOYABILITY
IMPROVE EDUCATION PROPER NUTRITION
AND LIFELONG EXPAND
ADVANCE R&D, TECHNOLOGY, AND INNOVATION
LEARNING STRENGTHEN SOCIAL EMPLOYMENT
PROTECTION OPPORTUNITIES ENHANCE INTER-INDUSTRY LINKAGES
ESTABLISH
LIVABLE ACHIEVE SHARED
COMMUNITIES LABOR MARKET PROMOTE COMPETITION AND IMPROVE
GOVERNANCE
REGULATORY EFFICIENCY

PRACTICE GOOD GOVERNANCE ENSURE MACROECONOMIC STABILITY AND

AND IMPROVE BUREAUCRATIC EFFICIENCY EXPAND INCLUSIVE AND INNOVATIVE FINANCE

ENSURE PEACE AND SECURITY, AND EXPAND AND UPGRADE ACCELERATE CLIMATE ACTION AND
ENHANCE ADMINISTRATION OF JUSTICE INFRASTRUCTURE STRENGTHEN DISASTER RESILIENCE

Capabilities of individuals and families will institutions to assess students’ proficiency

be developed to enable them to participate across all levels. TVET programs will be
in growth opportunities (Chapter 2). improved to make them more responsive to
industry needs. Higher-education institutions
• Good health will be promoted will be strengthened to perform a greater
(Subchapter 2.1). Health care strategies role in knowledge co-creation, and serve as
will be comprehensive and will focus on innovation hubs and incubation centers.
building an ecosystem in communities for
health care providers, and an environment • Livable communities established
where individuals can make healthy choices for human and social development
(e.g., nutritious affordable food and health (Subchapter 2.3). Communities and human
literacy). settlements will be planned and upgraded
in a way that offers equitable, inclusive,
• Opportunities for transformative and resilient opportunities for improving
lifelong learning will be expanded human well-being while contributing to the
(Subchapter 2.2). The quality of education economic vitality of the community. This will
at all levels will be improved by expanding be pursued through the promotion of social
access to quality learning resources, environment, improvement of environmental
enhancing the curriculum, and improving quality, and upgrading of the built
the competencies of teachers. The evaluation environment. All of which will be supported
protocol for learning outcomes will also
be improved by involving third-party

Chapter 1 A Plan for Economic and Social Transformation | 17

by a governance system that is accessible and • Employment facilitation services will be
ensures sustainability of livable communities. enhanced to include career development
support, and an active labor market
Social protection (SP) systems will be made information system.
more efficient with improved targeting and
digitalized processes for faster response • Everyone will have access to opportunities
to the needs of the most vulnerable to increase their income-earning abilities
(Chapter 3). by the effective enforcement of anti-
discrimination laws. Migrant workers will
• Amidst the possibility of accelerated also have access to these opportunities to
inflation owing to natural and external facilitate their reintegration back into the
shocks, the priority is to ensure domestic economy.
food security and proper nutrition,
especially among the most vulnerable The production sectors will be transformed
(Subchapter 3.1). A sufficient and stable to provide high-quality, high-skill, and
supply of food will be ensured, primarily stable employment opportunities for the
through improved productivity of agri-food fast-growing Filipino workforce.
systems, including storage, transport, and
logistics. Measures to prevent and address The strategies in each sector are categorized
wasting, stunting, and obesity will be into three major groups: (a) expand markets,
implemented through supplementary feeding, (b) promote value-adding, and (c) foster
nutrition education, and nutrition promotion inter-sectoral linkages.
campaigns.
Agriculture and agribusiness will be
• Social protection systems will be modernized (Chapter 5). Primarily,
strengthened (Subchapter 3.2). SP programs production efficiency will be improved
will be enhanced to reduce the risks faced through farm clustering or consolidation,
by Filipinos, and mitigate the impact of adoption of improved technology, and access
shocks. Critical to this is the establishment to inputs. More innovation hubs and farm
of a universal, modern, and integrated SP demonstration sites will be established and
system to improve targeting, rationalize the Province-led Agriculture and Fisheries
interventions, and facilitate the timely Extension System will be strengthened. The
delivery of SP services. blue economy will be developed with the full
implementation of the Fisheries Management
Jobseekers and those currently working will Act plans, and the upgrading of Technology
have more opportunities to improve their Outreach Stations, and National Technology
income-earning ability (Chapter 4). Centers, among others. Opportunities for
greater value-adding will be created by
• Contents of training modules and expanding business partnerships between
curricula for human capital development primary producers and other entrepreneurs,
will be continuously updated to match the and by strengthening the capacity of
needs of emerging in-demand occupations. primary producers to process raw materials,
The updating will also cover professional understand markets, and ensure that
standards and licensure examinations. food safety and quality standards are met.

18 | Philippine Development Plan 2023-2028

Government will rationalize investments in operations will also increase demand. Value-
the sector to promote the interconnectedness adding to diversify “product” offering and
of multimodal transport and logistics, improve “consumption” experience will
particularly for perishable products. Use be encouraged by instituting accreditation
of mobile platforms and channels will be protocols; improving access to physical
encouraged for marketing, payment, and and digital infrastructure; and developing
product delivery. Institutional capacity to technology parks, centers of creative
formulate plans, conduct R&D, provide excellence and innovation, creative talent
extension services, and undertake monitoring hubs, and improved shared service facilities
and regulation will be enhanced with for MSMEs. Finally, capacities of institutions
the use of modern technology and better providing business advisory services, and
information systems. of communities and LGUs hosting the
investments and events will be continuously
Industry will be revitalized (Chapter 6). upgraded.
Domestic production and supplier base will
be expanded, particularly corresponding to Establishing a dynamic innovation
the value chains of the following industry ecosystem is at the heart of the
clusters: (a) industrial, manufacturing, and transformation agenda of the PDP 2023-
transport (IMT); (b) technology, media, and 2028 (Chapter 8). The innovation ecosystem
telecommunication (TMT); (c) health and life involves interlinkages between and among
sciences (HLS); and (d) modern basic needs social scientists, basic R&D institutions,
(MBN). This entails enhancing business- product engineers, design and marketing
matching activities and intensifying support specialists, and entrepreneurs who bring
through the provision of common service the ideas and all these players together.
facilities, marketing assistance and even Over the medium term, government will
time-bound performance-based incentives. (a) provide a nurturing environment for
Servicification will be promoted, including basic R&D, and knowledge creation; (b)
the adoption of Industry 4.0, IoT, etc. This support market-driven and customer-
will be done through co-locating industry centered R&D; (c) scale up technology
and service enterprises, and including adoption, utilization, and commercialization;
academic institutions, and providing more and (d) promote an innovation culture
platforms for collaboration. and entrepreneurship. Government will
make use of a combination of financial and
Services sector will be reinvigorated technical support to academic and skills
(Chapter 7). Demand for services will training institutions, business incubators,
be expanded by actively promoting the and startups. Government will also establish
country’s tourism, culture, creative sector, physical and digital platforms to encourage
and Information Technology-Business greater collaboration between and among the
Process Management (IT-BPM). Adoption of ecosystem players.
holiday economics will also be undertaken
to boost domestic tourism, promote local Trade and investments will be promoted
products, and encourage inter-cultural to improve the competitiveness of
exchanges. Streamlining regulations to allow domestic industries, increase demand for
24/7 operations of transport and logistics Philippine products and generate more jobs

Chapter 1 A Plan for Economic and Social Transformation | 19

(Chapter 9). International trade will continue to regulatory impact assessment (benefits
to be a major strategy to expand markets, of the regulation to society vs. the cost of
diversify sources for the cumulation of raw compliance, monitoring, and enforcement)
and intermediate materials, and increase to ensure that these are effective in addressing
competitiveness. Thus, government will adopt negative externalities and not simply adding
a purposive, assertive, and forward-looking to the cost of doing business in the country.
position in negotiating regional trade
agreements. Renewed focus will be given to Macroeconomic stability will be ensured
the survival, growth, and expansion of local (Chapter 11).
firms in the export and domestic markets in
• The health of the financial sector will
order to drive productive employment, and
be enhanced (Subchapter 11.1). This will
increase incomes.
improve the efficiency of the financial sector
Government will also position the services in its role as intermediator between savers
sector as the foremost supplier of tradeable and investors, thereby promoting sustained
intermediate services. To this end, support economic growth.The strategies aim to
will be provided to training and retraining broaden and deepen financial inclusion,
programs for the sector and facilitate and accelerate financial innovation, while
access to the necessary physical and ensuring financial sector health. On financial
digital infrastructure. inclusion, the strategies include promoting
financial literacy, and facilitating access
Foreign direct investments (FDI), on the to financial services and instruments. On
other hand, will be harnessed as drivers of financial innovation, government institutions
export growth, sources of vital technology, will adopt a “regulatory sandbox” approach
and critical enablers of the country’s for new innovations, promote RegTech,
long-term climate action. Government will and address information gaps to encourage
launch an international campaign (“Make innovations. To ensure financial health,
it Happen in the Philippines”) to raise government institutions will intensify
awareness of the new business climate given consumer protection, and undertake
the amendments to the FIA, RTLA, PSA, macro- and micro-prudential measures.
and the CREATE Law. The Inter-agency
Investment Promotion Coordination • Sound fiscal management, including
Committee will ensure proper alignment of a conducive tax regime, will be fostered
promotion strategies and various ordinances (Subchapter 11.2). These are necessary
among national and local governments and conditions to foster investor confidence in
investment promotion agencies. the economy and ensure macroeconomic
stability. As it stands, a medium-term fiscal
Businesses will be assured of a healthy framework has been proposed and approved
regulatory environment and a level by President Marcos, Jr.; and endorsed by
playing field (Chapter 10). The strategy is Congress. This is an initial step in assuring
to ensure firm and consistent enforcement markets of the government’s resolve to
of the Philippine Competition Act and exercise fiscal discipline in spending, fiscal
competition-related issuances. At the programming and debt management.
same time, regulations will be subjected

20 | Philippine Development Plan 2023-2028

Individuals, businesses, and civil society and integrity and deepening participatory
will enjoy better connectivity (Chapter 12). governance that ensures that marginalized
Investments in the appropriate infrastructure sectors (e.g., women, children, indigenous
can help reduce the cost of electricity, ensure peoples, persons with disabilities and in
water security, and lower the cost of logistics. Geographically Isolated and Disadvantaged
Such investments will improve access to Areas [GIDA]) have concrete roles and
people, goods and services and information, significant influence in all stages of public
and promote growth that is more inclusive. decision-making.
Given the limits to government resources and
capabilities, PPPs will be further encouraged. Given the tight fiscal space, the government
Infrastructure sectoral master plans and must pursue bureaucratic efficiency
road maps will be prepared to provide a to maximize the benefits from public
more comprehensive understanding of the spending. Doing so involves rightsizing
infrastructure gaps and needs, and thus and a whole-of-government approach in
serve as a sound basis for identifying priority reengineering systems and procedures;
infrastructure programs, activities, and accelerating digital transformation in
projects, including those that may be best government; and raising the productivity
pursued through PPP modalities. performance of agencies, as well as the
competencies of public servants.
Filipinos and residents of the Philippines
will enjoy peace and security and an Finally, the Plan recognizes the need for
efficient justice system (Chapter 13). collective action to mitigate the climate
crisis, and strengthen our resilience
• Lasting peace and security enable a to disasters (Chapter 15). The priority
stable environment for a strong and vibrant is to enhance the adaptive capacity of
economy (Subchapter 13.1). communities and ecosystems that are most
vulnerable to natural hazards and climate
• At the same time, an efficient justice change. This will be supported by an
system characterized by integrity, fairness, improved knowledge and data ecosystem, and
accessibility, and a proper regard for the good governance.
rule of law is necessary for fostering a
high-trust society and a favorable business
climate (Chapter 13.2).

Private sector and civil society will observe

marked improvements in bureaucratic
efficiency and the practice of good
governance (Chapter 14). Good governance
entails bolstering public accountability

Chapter 1 A Plan for Economic and Social Transformation | 21

We commit to the following target
outcomes over the medium term…
Over the next six years, the development of being 59th out of 132 countries in 2022.
agenda of the Philippines will be guided by Similarly, the country will be ranked
the headline targets that prioritize poverty among the top 33 percent in the Global
reduction and inclusive growth. While Competitiveness Index by 2028.
navigating external headwinds, the country
will rebuild the losses from the pandemic Create more and better-quality jobs.
and invest in improving areas where deep Although unemployment is nearing
weaknesses were apparent in the pandemic pre-pandemic levels in 2022 at 5.7 percent,
response, for example: in health and there is much room to improve the quality,
responsiveness of social protection; and in productivity, and stability of employment. By
mainstreaming resilience throughout the 2028, the target unemployment rate is within
bureaucracy (e.g., local governments, finance, 4.0 to 5.0 percent, and the percentage of wage
education, disaster risk reduction, and energy and salary workers in private establishments
security) and communities. This development to total employed is within 53 to 55 percent.
agenda aims to get the Philippines back on
Reduce poverty incidence to 9 percent
track toward achieving upper middle-income
by 2028. This is expected to result from
country status by 2025.
sustained economic growth that generates
Maintain high levels of economic growth more and better-quality jobs, and is
in the medium term, rising from 6.0 to supported by an efficient SP system.
7.0 percent in 2023 to 6.5 to 8 percent from
2024 to 2028. Sustained high levels of growth Keep food and overall prices low and stable.
is a necessary condition for meeting the Food and overall inflation will be kept within
AmBisyon Natin 2040. 2.0 to 4.0 percent. This will then reduce
subsistence incidence to 2.5 to 3.5 percent.
Transform the production sectors toward
generating more and better-quality jobs, Ensure fiscal discipline. National government
and enabling the competitiveness of deficit to GDP ratio will be gradually brought
enterprises in domestic and international down from 6.5 percent during the first half
markets. The Philippines aims to continue of 2022 to 3.0 percent in 2028. Outstanding
its progress among the innovation achievers government debt to GDP ratio will also
of the region by rising in rank in the Global be gradually reduced from 63.7 percent in
Innovation Index (GII) from a baseline September 2022 to 51.1 percent by end-2028.

22 | Philippine Development Plan 2023-2028

Table 1.1 Table of Headline Indicators

BASELINE ANNUAL TARGETS MEANS OF

INDICATOR
(YEAR) 2023 2024 2025 2026 2027 2028 VERIFICATION
Gross domestic product 5.7 6.0–7.0 6.5–8.0 6.5–8.0 6.5–8.0 6.5–8.0 6.5–8.0 National Accounts
(GDP) increased (growth (2021) of the Philippines
rate, %) (NAP); Philippine
7.7 Statistics Authority
(Q1-Q3 2022) (PSA)
Global Innovation Index 59th out of 132 57th 54th 52nd 49th 46th 43rd GII Report
improved (GII) rank (2022)
(Chapter 8)

Global Competitiveness Top 45% Top 43% Top 41% Top 39% Top 37% Top 35% Top 33% World Economic
Index (GCI) rank and score Score: 61.9 Score: 62.1 Score: 62.7 Score: 62.9 Score: 64.3 Score: 64.9 Score: 65.1 Forum Global
improved (Chapter 8) (2019) Competitiveness
Report
Unemployment rate 5.4 5.3–6.4 4.4–4.7 4.8–5.1 4.0–5.0 4.0–5.0 4.0–5.0 Labor Force Survey
decreased (%) (Ave. Jan, Apr, Jul, (LFS), PSA
Oct 2022)
Percentage of wage and 49.6 50.3-50.7 50.9-51.5 51.4-52.4 51.9-53.3 52.5-54.1 53.0-55.0 LFS, PSA
salary workers in private (Ave. Jan, Apr, Jul,
establishments to total Oct 2022)
employed increased (%)

Gross national income USD3,640 USD4,130– USD4,454– USD4,814– USD5,256– USD5,645– USD6,044– World Bank,
per capita increased (2021) USD4,203 USD4,592 USD4,920 USD5,563 USD6,056 USD6,571 International
Monetary Fund
Poverty incidence 18.1 16.0–16.4 * 12.9–13.2 * 10.0–10.3 8.8–9.0 Family Income and
reduced (% of population) (2021) Expenditure Survey
(FIES), PSA
Food inflation rate kept 5.7 2.5–4.5 2.0–4.0 2.0–4.0 2.0–4.0 2.0–4.0 2.0–4.0 PSA
stable (%) (Jan–Nov 2022)
Headline inflation rate 5.6 2.5–4.5 2.0–4.0 2.0–4.0 2.0–4.0 2.0–4.0 2.0–4.0 PSA
kept stable (%) (Jan–Nov 2022)

National Government 6.5 6.1 5.1 4.1 3.5 3.2 3.0 Bureau of Treasury
(NG) deficit to GDP (Q1–Q3 2022) (BTr)
ratio declined (%)
(Subchapter 11.2)

Outstanding NG debt 63.7 60–62 57–61 56–59 54–58 50–55 48–53 BTr
stock to GDP ratio (Sept 2022)
reduced (%)(Chapter 11.2)

…by adopting a whole-of-society approach.

The transformation objectives for each covered in greater depth in the succeeding
part of the PDP, set against a backdrop of chapters in this PDP. The strategies integrate
the urgency for post-pandemic recovery, the transformation agenda that are needed for
will require strong collective action. The a prosperous, inclusive, and resilient society.
high-level framework laid out in this chapter Through coordinated action involving a
situates each sectoral strategy and is further whole-of-government and whole-of-society

Chapter 1 A Plan for Economic and Social Transformation | 23

approach, the country can regain its footing cross-cutting strategies of promoting trade
from the impacts of the pandemic, maintain and investment, innovation, and healthy
stability in the face of persistent external competition and regulatory quality are
headwinds, and ease the path of Filipinos also covered. Part IV discusses strategies
toward progress. that will create an enabling environment
through: good governance and bureaucratic
Through partnerships and collaborations efficiency; ensuring sound macroeconomic
among the public sector, private industry, fundamentals; infrastructure development;
civil society, and all communities working peace, security, and justice; and climate
toward the common goal of bringing a action. Finally, Part V reviews the
comfortable and stable life to all Filipinos, implementation and monitoring of the Plan
the targets of AmBisyon Natin 2040 remain over the next six years.
within reach.
Each chapter/subchapter is organized into
This document is organized into five parts. four sections. The first section, Assessment
Part I introduces the objectives, context, and Challenges, discusses the most recent
and overall strategy of PDP 2023–2028. data showing progress in the sector, followed
Part II covers the strategies for developing by the constraints or weaknesses faced by
the potential of Filipinos through sustained stakeholders in the sector. The second section
human and social investments while illustrates the Strategy Framework, which
simultaneously providing social safety then frames the discussion of the Strategies
nets to mitigate the impact of risks. Part in the third section. The chapter/subchapter
III discusses ways that seek to transform ends with the priority Legislative Agenda that
sectors in agriculture, industry, and the Executive Branch, in consultation with
services through market expansion, value various stakeholders, consider as critical in
addition, and inter-sectoral linkages. The unlocking the constraints faced by the sector.

24 | Philippine Development Plan 2023-2028

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