The present disclosure comprises a polymeric substrate that provides multiple releases of active agents. A substrate for multiple phase delivery of active agents is provided having a first polymer matrix layer having a first active agent disposed therein, a second polymer matrix layer having a second active agent disposed therein, and a coacervate layer disposed between the first polymer matrix layer and the second polymer matrix layer. Selected first and second active agents are included in the first and second polymer matrices such that as the first and second polymer matrices dissolve, the active agents are released. Multiple phase active agent release is achieved by constructing multiple layers of a polymer matrix containing an active agents formed with polymers having different solubility characteristics or with active agents at different concentration levels.