***** NOT A TEACHER *****
You have asked a great question. Perhaps it would have been
helpful to cite the complete quotation.
Let's say that it was something like:
It is becoming more of a political will than simply a matter of
getting enough votes to pass the bill.
That is, the government has enough votes to pass the bill, but
it may lack the political will. It is afraid to go ahead with the bill
in Congress/Parliament/the Diet, etc. because it is afraid to
offend powerful interests. In other words, the king/president/prime
minister, etc. does not have the guts (courage) to demand that the
bill be passed.
***** NOT a teacher *****
If you post the complete quotation, one of the teachers here will
be delighted to give you a reliable answer. I have given you only
my guess based on an incomplete quotation.
Interested in Language