a PDF of the BDP - Bangsamoro Development Agency

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2
Bangsamoro Development Plan
2
© 2015 by the Bangsamoro Development Agency
All rights reserved. Any part of this book may be used and reproduced, provided proper acknowledgment is made.
Promoting just, honorable and lasting peace and sustainable development in the Bangsamoro
Published by:
Bangsamoro Development Agency
Purok Islam, Barangay Datu Balabaran (MB Tamontaka), Cotabato City
Tel: (064) 552-0131
Email: [email protected]
www.bangsamorodevelopment.org
Cover photos courtesy of the Philippine Official Gazette, Office of the Presidential Adviser on the Peace Process, and
PhilSouth Angle.
ISBN: 978-621-95209-2-8
Printed in the Philippines
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Contents
Acronyms
ix
Foreword
x
Acknowledgements
xii
The Vision of the Bangsamoro Development Plan
xv
Chapter 1: Introduction
1
A. Background
2
B. Objective
3
C. Outline of the Plan
3
Chapter 2: History and Analysis of Conflict in the Bangsamoro
5
A. A Brief History of the Bangsamoro Struggle
6
B. Conflict and Development Analysis of the Bangsamoro
8
Chapter 3: Plan Methodology and the Bangsamoro Development Framework
11
A. Guiding Principles
12
B. The Bangsamoro Development Framework
12
C. Technical Analysis
14
D. Clamor from the Ground
15
E. Review of Relevant National and Regional Development Plans
15
F. Limitations
15
Chapter 4: Current Situation, Development Gaps, and Opportunities in the Bangsamoro
17
A. Background
18
B. The Vicious Cycle in the Bangsamoro
20
C. Development Gaps in the Bangsamoro
23
D. Development Opportunities
24
Chapter 5: Clamor from the Ground
27
A. Community Visioning Exercises: Results and Insights
28
B. Cross-Validation of Consolidated Outputs
31
Chapter 6: Strategy and Recommendations
33
A. Overall Goal of the Bangsamoro Development Plan
34
B. Strategic Interventions
35
C. Priorities
35
D. Potential Impacts
35
Chapter 7: Economy and Livelihood
39
A. Context: Economic Performance, Poverty, and Livelihood in the Bangsamoro
40
B. Strategic Goals
46
C. Summary of Priority Programs
56
Chapter 8: Infrastructure
59
A. Context: A Fragmented and Overstretched Infrastructure Network
60
B. Strategic Goals
64
69
Chapter 9: Social Services
71
A. Context: Education, Health, and WaSH in the Bangsamoro
72
B. Strategic Goals
79
91
Chapter 10: Environment and Natural Resources
93
A. Context: Rich but Fragile Natural Resources and Ecological Heritage
94
B. Strategic Goals
100
C. Strategies
101
D. Summary of Priority Programs
103
Chapter 11: Culture and Identity
105
A. Context: The Diverse Culture in the Bangsamoro
106
B. Strategies
108
109
Chapter 12: Governance
111
A. Context: Governance Structures and Systems in the Bangsamoro
112
B. Transition Period Phase
114
C. Transition Challenges, Features, and Targets
115
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D. Promoting Shari’ah Justice
126
E. Strengthening Fiscal Autonomy in the Bangsamoro
128
F. Normalization and Development
128
G. Summary of Priority Programs
129
Chapter 13: Proposed Implementation Arrangements and Financial Modalities
131
A. General Principles
132
B. Proposed Implementation Arrangements
132
C. Relationships with Key Partners
134
D. Role of Community Leaders and Organizers
135
E. Training and Strategic Research
135
F. Possible Financing Modalities
136
Chapter 14: Challenges and Mitigating Measures
139
Chapter 15: Results-based Monitoring and Evaluation Framework
143
A. Objectives
144
B. Guiding Principles
145
Annexes
147
Annex A: BDP Priority Programs
148
Annex B: BDP Governance Structure
152
Annex C: Relevant National and Regional Development Plans
159
Annex D: Clamor from the Ground
160
Annex E: Poorest Provinces and Municipalities in the Philippines
166
Annex F: Cultural Diversity in the Bangsamoro
173
Annex G: Results-based Monitoring and Evaluation Framework
175
BDP Background Papers
190
References
192
List of Tables
Table 1:
Table 2:
Table 3:
Table 4:
Table 5:
Table 6:
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Table 39:
Table 40:
Table 41:
Table 42:
Table 43:
Table 44:
Table 45:
Table 46:
List of BDP Themes, Components, and Participating Partners
Selected Indicators of Development Gaps
Economy and Livelihood-Related Concerns, Aspirations, and Priority Programs
Social Development-Related Concerns, Aspirations, and Priority Programs
Environment and Natural Resource-Related Concerns, Aspirations, and Priority Programs
Culture and Identity-Related Concerns, Aspirations, and Priority Programs
Governance-Related Concerns, Aspirations, and Priority Programs
Security-Related Concerns, Aspirations, and Priority Programs
Top Community Priorities Based on Previous Needs Assessments
Sequencing of Recommended Projects/Activities for Phases I and II of the Transition Period
Targets on Human Capital and Household Welfare
Average Annual Production of Key Crops in ‘000 mt (2010–2013)
Sources of Credit in the Bangsamoro (2011)
Youth Unemployment and Labor Force Participation (2013)
Priority Economy and Livelihood Programs
Status of Electrification in ARMM (2013)
Infrastructure Strategies and Project Types
Priority Infrastructure Programs
Prevalence of Undernutrition Among Children (0–5 Years Old) in ARMM (2008–2013)
Housing Needs Estimate by Housing Indicator in ARMM (2010–2017)
Access to Education for Internally Displaced Persons (2011)
Distribution of Elementary Schools by Type (SY 2013 and 2014)
Priority Social Programs
Forest Cover Change in ARMM in Hectares (2003–2010)
Proclaimed Watersheds in ARMM (2012)
Priority Environment and Natural Resource Programs
Priority Culture and Identity Programs
Challenges, Features, and Targets of Transition Phases I, II, and III
Priority Governance and Justice Programs
BDP Project Steering Committee
BDP Advisory Council
BDP Joint Review Committee
BDP Core Planning Team
Thematic Area Focal Persons
BDP Support Team
Thematic Area Consultants
National Government Agencies
ARMM Line Agencies
Overview of MCSOPP Consultation Outputs
Ranking of Poverty Incidence in the Philippines, by Province (2006, 2009, and 2012)
100 Poorest Municipalities and Cities in the Philippines (2006 and 2009)
Location and Population of ICCs/IPs in ARMM, Lanao del Norte, North Cotabato, and the Cities of
Isabela and Cotabato
Proposed Implementation Arrangements for RbM&E
Overall Goal and Strategies of the BDP
Logical Framework Matrix
Indicators to Monitor and Evaluate
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23
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List of Figures
Figure 1:
Figure 2:
Figure 3:
Figure 4:
Figure 5:
Figure 6:
Figure 7:
Figure 8:
Figure 9:
Figure 10:
Figure 11:
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Figure 13:
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Figure 21:
Figure 22:
Figure 23:
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Figure 25:
Figure 26:
Figure 27:
Figure 28:
Figure 29:
Figure 30:
Figure 31:
Figure 32:
Annual Trend of GPH-MILF Armed Skirmishes (2002–2014)
Bangsamoro Development Framework
The Vicious Cycle of Injustice, Insecurity, and Underdevelopment
Population Age and Gender Projections (2010 and 2040)
ARMM Budget 2009–2014
Current Aid Strategy and Practice: A Macro Perspective (2001–2010)
Transforming a Vicious Cycle to a Virtuous Cycle
GRDP Growth Scenarios in Bangsamoro (2011–2016)
Sectoral Composition of ARMM GRDP: Four-Year Average (2009–2012)
Agriculture, Fishery and Forestry Sector Growth (1996–2012)
Nominal Value of Production of Top 10 Major Crops in the ARMM: 5-Year Average (2008–2012)
Total Bank Deposits in ARMM (as of end Dec 2013)
Total Bank Loans in ARMM (as of end Dec 2013)
Poverty Incidence in ARMM (2006–2012)
National Road Density (2012)
Ratio of Paved National Roads (2012)
Ratio of Paved Farm-to-Market Roads in ARMM (2005)
Ratio of Irrigated to Estimated Irrigable Area (2000–2012)
Human Development Index in the Bangsamoro (2000–2009)
Education Attainment, All Ages (2010)
Education Attainment, 18 Years Old and Above (2013)
Percent of Children (12–23 Months Old) with No Vaccinations (1998–2013)
Percent of Children (12–23 Months Old) Who Received All Basic Vaccinations (1998–2013)
Government Health Workers per 100,000 Population (2011)
Percent of Households with Health Insurance (2013)
Percent of Women (15–49 Years Old) with Health Insurance (2013)
Percent of Households with Access to Improved Safe Water Supply (2011)
Percent of Households with Access to Sanitary Toilet Facilities (2011)
Ethnic Diversity in the Bangsamoro (2010)
Religious Diversity in the Bangsamoro (2010)
Principal Sources of Government Funds to ARMM (2009–2011)
Proposed Implementation Arrangements
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List of Maps
Map 1:
Map 2:
Map 3:
Map 4:
Map 5:
Map 6:
Map 7:
Map 8:
Map 9:
Map 10:
Map 11:
Map 12:
Map 13:
Map 14:
The Proposed Bangsamoro Core Territory (BCT) (2014)
Poverty Incidence, by Province (2012)
Number of Establishments by Municipality (2012) and Municipalities Served by Banks (2013)
Displaced Households in the Bangsamoro and Surrounding Areas (2009)
Agro-Edaphic Maps of the Bangsamoro and Adjacent Areas (as of 2012)
Major Airports and Seaports in Mindanao (2014)
Transportation Network in the Bangsamoro (2014)
Barangay Access to Electricity and Electrification Projects in the Bangsamoro (2014–2015)
Barangay Access to Primary Education Facilities and Distribution of Population by Barangay
(6–12 Years Old) (2010)
Barangay Access to Health Centers and Distribution of Population by Barangay (2010)
Barangay Access to Waterworks System and Distribution of Household Population by Barangay (2010)
Integrated Mining Map (EO 79) (2013)
Vulnerability (2008)
Ethnic Diversity Index (2010)
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Acronyms
ADB
AFF
AFP
ARG
ARMM
ARMM-DAF
Asian Development Bank
Agriculture, Fishery and Forestry
Armed Forces of the Philippines
ARMM Regional Government
Autonomous Region in Muslim Mindanao
Autonomous Region in Muslim MindanaoDepartment of Agriculture and Fisheries
BBL
Bangsamoro Basic Law
BCT
Bangsamoro Core Territory
BDA
Bangsamoro Development Agency
BDP
BDF
BIAF
Bangsamoro Islamic Armed Forces
BIWA
Bangsamoro Islamic Women Auxiliary
BIMP-EAGA
Brunei Darrusalam-Indonesia-MalaysiaPhilippines East ASEAN Growth Area
BSP
Bangko Sentral ng Pilipinas
BTA
Bangsamoro Transition Authority
BTC
Bangsamoro Transition Commission
CAA
Conflict-Affected Area
CAB
Comprehensive Agreement on the
Bangsamoro
CCT
Conditional Cash Transfer
CDD
Community-Driven Development
CPH
Census of Population and Housing
CT4T
Coordination Team for the Transition
DA Department of Agriculture
DAR
Department of Agrarian Reform
DOE
Department of Energy
DOTC
Department of Transportation and
Communications
DPWH
Department of Public Works and
Highways
EC Electric Cooperative
FAB
Framework Agreement on the
Bangsamoro
FMR
Farm-to-Market Road
FIES
Family Income and Expenditure Survey
ICP
IDB
IDP
GAD
GAA
GDP
GPH
GRDP
GRP
JCCCH
JICA
JNC
LFS
LGU
MILF
MIM
MNLF
MOA-AD
MTF-RDP
NDHS
NPC
ODA
PAG
PAMANA PDP
PSA
PNP
PPP
REZA
SDF
TISP
TJRC
TPMT
Independent Commission on Policing
Independent Decommissioning Body
Internally Displaced Person
Gender and Development
General Appropriations Act
Gross Domestic Product
Government of the Philippines
Gross Regional Domestic Product
Government of the Republic of the
Philippines
Joint Coordinating Committee on the
Cessation of Hostilities
Japan International Cooperation Agency
Joint Normalization Committee
Labor Force Survey
Local Government Unit
Moro Islamic Liberation Front
Moro Independence Movement
Moro National Liberation Front
Memorandum of Agreement on Ancestral
Domain
Mindanao Trust Fund-Reconstruction
and Development Program
National Demographic and Health Survey
National Power Corporation
Official Development Assistance
Private Armed Group
Payapa at Masaganang Pamayanan
Philippine Development Plan
Philippine Statistics Authority
Philippine National Police
Public-Private Partnership
Regional Economic Zone Authority
Special Development Fund
Transition Investment Support Plan for
the ARMM
Transitional Justice and Reconciliation
Commission
Third-Party Monitoring Team
ix
Foreword
In the name of Allah, Most Beneficent, Most Merciful
donors and development partners, to conduct needs
assessment in the Bangsamoro, and to facilitate the
The challenges to nation-building are very daunting.
formulation of the Bangsamoro Development Plan (BDP).
This is more so in the case of revolutionary organizations
We are proud that despite seemingly insurmountable
that are tasked to lead governments during transitions
challenges that they faced in the course of crafting
after successful peace negotiations. In the case of the
the BDP, the men and women of BDA rose with firm
Moro Islamic Liberation Front (MILF), we are aware
determination to the challenge of designing a blueprint for
that our more than four decades of knowledge and
development that seeks to address the fundamental needs
experience in the struggle for the Bangsamoro right to
and aspirations of the Bangsamoro people, who have lived
self-determination are hardly sufficient and relevant.
in a vicious cycle of injustice, conflict, and poverty for
generations.
Our decision to create the Bangsamoro Development
Agency (BDA) in 2002 in pursuance of the relevant
This Plan is intended to bring about equitable, inclusive,
provisions of the agreement between the MILF and the
and sustainable recovery and development of Bangsamoro
Government of the Philippines (GPH) underpins our
areas whose constituents also include both indigenous and
solid commitment to a just, lasting and honorable peace
migrant communities.
and sustainable development in the Bangsamoro and
its adjacent areas even while the peace negotiation is
The Plan takes into consideration the unique needs
still ongoing. As a genuine pro-people struggle, MILF
and aspirations of the Bangsamoro people. It includes
is never against development that will redound to the
the promotion of economic growth, equal access to
improvement of the deplorable condition of grassroots
employment and livelihood opportunities, human capacity
communities.
development, and elimination of social and economic
inequities that have resulted from decades of neglect,
The signing of the Framework Agreement on the
historical injustice, poverty, and inequality.
Bangsamoro (FAB) and the Comprehensive Agreement
on the Bangsamoro (CAB) and the endorsement of the
To ensure attainment of these objectives, we adopted a
proposed Bangsamoro Basic Law (BBL) to Congress
comprehensive framework that is based on the Sustainable
demonstrated to us the unwavering commitment and firm
Human Development and Peacebuilding Frameworks
resolve of H.E. President Benigno C. Aquino III to, once
combined with the Bangsamoro core values of khalifa
and for all, address the roots of the conflict in Mindanao.
(stewardship), piety, transparency, accountability, and
inclusiveness, among others. We made sure that these
x
In anticipation of a scenario of peace and intensive
principles were adhered to when community visioning
nation-building in the emerging Bangsamoro, we tasked
exercises and consultations were done among different
our development arm, the BDA, to coordinate with
stakeholders in our communities within and outside the
2
proposed Bangsamoro core territories, in addition to the
in our journey towards lasting peace and development,
technical inputs contributed by our expert Bangsamoro
continue to walk with us until we are able to jumpstart
focal persons as well as the technical experts deployed
a “just economy” that will provide equal access to
by our local and international partners.
livelihood, jobs, justice, and security to all residents of
the Bangsamoro in the short and medium terms.
Cognizant of the difficulties in crafting a plan for
communities emerging from conflict, we convey
The fruits of our struggle, attained not only through the
our sincere thanks to all aid agencies, development
sweat and tears of our mujahideen and their families
partners,
who
but more so through the blood and lives of our martyrs,
collaborated with BDA, thus paving the way for the
are not only for MILF members. It is for the entire
realization of this Plan. Your sincere support opened a
Bangsamoro to partake regardless of ethnic, religious,
window of opportunity for our vision for a peaceful and
and political affiliations including the indigenous peoples
progressive Bangsamoro to possibly see the dawning of
and migrant communities living in our midst. Once our
a new day.
objectives are attained, it is not only the Bangsamoro
and
counterparts
in
government
people that will be benefited but the entire Filipino
The transition period to the Bangsamoro is very short
people as well.
and this Plan will remain a plan if not implemented
through different programs and projects identified in it.
Let this Plan be an enduring legacy of our struggle for the
It is of crucial importance, therefore, that aid agencies
Bangsamoro of today and tomorrow.
and development partners who accompanied us early
AL-HAJ MURAD EBRAHIM
Chairman
MILF Central Committee
xi
Acknowledgements
3 September 2013. The basis of this important work is an
official directive from no less than the Chairman of the MILF
Early in the creation of the Bangsamoro Development
Central Committee that mandated the BDA on 22 March
Agency (BDA) in 2002, we aspired to formulate a
2013 “to coordinate with donors and funding partners,
Bangsamoro Development Plan (BDP) that would serve
to conduct needs assessment in the Bangsamoro, and to
as a comprehensive roadmap for the just, equitable,
expedite the formulation of the Bangsamoro Development
and sustainable reconstruction and development of
Plan.”
Bangsamoro communities ravaged by several decades
of armed conflict. At the BDA, we have been seeking
The schedule of completion of the Plan was set for March
to address the fundamental needs and aspirations of the
2014; however, this was initially hampered by unexpected
Bangsamoro as a people, who have lived in a vicious
events beyond the control of BDA and its development
cycle of injustice, violence, and poverty for generations.
partners. The destructive earthquake that hit Bohol and the
However, constraints on technical expertise and other
super typhoon Yolanda that devastated Tacloban and other
resources hindered the realization of this dream.
adjoining areas in the Visayas region temporarily shifted the
attention of aid agencies from the BDP to the immediate
The signing of the Framework Agreement on the
relief and rehabilitation of these ravaged areas. In addition,
Bangsamoro (FAB) on 15 October 2012 suddenly
there were also other unforeseen technical challenges and
changed the outlook of donors and development partners
geographic location issues that were encountered along the
from one of indifference to one of eagerness to support
way while implementing the various activities. All of these
the preparation of the Plan. This is understandable, since
issues contributed to the delay of the plan completion.
the FAB is the first breakthrough agreement that has
solidly galvanized the commitment of the Moro Islamic
This work is rendered extraordinarily challenging by the
Liberation Front (MILF) and the Government of the
fact that it is being done for the Bangsamoro Homeland that
Philippines (GPH) to peacefully resolve the decades-old
is just emerging from a long history of violent conflict. We
conflict in Mindanao. The signing of the Comprehensive
are well aware that we have to set overarching targets that
Agreement on the Bangsamoro (CAB) on 27 March 2014
cannot be easily translated into numerical figures such as
further reinforced confidence in the positive outcome
stability and confidence building, while at the same time,
of the peace process. Indeed the FAB paved the way
realizing the need to set quantifiable goals in other thematic
toward the crafting of a blueprint for development in the
areas of the Plan. In so doing, we have to be constantly
Bangsamoro.
mindful of utilizing a peacebuilding lens believing that no
amount of prosperity could be achieved and preserved if
As a demonstration of their overwhelming support,
the roots of the conflict are not addressed.
aid agencies, and development partners responded
xii
positively to the convening of the MTF-funded 1st
We tried our best to make the planning activities as
Donors Forum conducted by the BDA at the Asian
participatory and inclusive as possible to ensure ownership
Institute of Management Conference Center Manila on
of the plan by all stakeholders in the Bangsamoro. We
2
derived inputs from reports of various technical experts
gaps that could have rendered the Plan incomplete if
who conducted research, analyzed data, and formulated
left unattended. The deployment of their consultants to
recommendations. We extensively utilized a bottom-up
assist the Core Planning Team to complete its task even
approach through our community visioning exercises
after the submission of reports on the different thematic
and grassroots consultations to determine the real needs
and sub-thematic areas undertaken by relevant agencies
and aspirations of Bangsamoro communities from the
is a testament to their unwavering support for peace and
people themselves within and outside the proposed core
development in Mindanao.
territories.
Our thanks also go to the Asian Development Bank
This work is designed as a plan by the Bangsamoro for the
(ADB) for providing invaluable support to our Advisory
Bangsamoro whose constituents include other indigenous
Council and in procuring technical experts who
peoples and settler communities. It is a means by which
assisted us in producing a study on the sub-themes on
the Bangsamoro dreams and aspirations as a people will
infrastructure and regional cooperation.
be finally realized. But, with all humility, the completion
of this project would not have been possible without the
The Asia Foundation (TAF) also deserves our sincere
support of local and international funding agencies and
appreciation for providing technical experts who worked
development partners who mobilized financial assistance
on the thematic areas of governance and security.
and technical experts to support the BDA-BDP Team in the
conduct of its activities.
Our Plan would have been incomplete without the
attention given to the private sector initiatives particularly
We express our gratitude to the World Bank-managed
in agribusiness, halal industry and Islamic banking and
MTF and all its donor partners—the European Union,
finance. It is a fact that private investment serves as the
the Department of Foreign Affairs and Trade (DFAT) of
real engine for economic growth and development in
Australia, the Department of Foreign Affairs, Trade and
the community. Thanks to the team of experts provided
Development (DFATD) of Canada, the New Zealand
by the Foundation for Economic Freedom (FEF) who
Ministry of Foreign Affairs and Trade (NZFAT), the Swedish
conducted an MTF-funded study for the BDA, entitled
International Development Agency (SIDA), and the United
“Strategic Roadmaps for the Development of Agribusiness
States Agency for International Development (USAID)—for
Industry, Halal Food Industry, and Islamic Banking
allocating funds and deploying local and international
and Finance in the Bangsamoro” dated July 2014. This
consultants for assisting the BDA Core Planning Team.
study also benefited from parallel workshops conducted
by the FEF and the Philippine Council for Islam and
We also recognize the significant support of the Japan
Democracy (PCID) and funded by the Australian
International Cooperation Agency (JICA) in mobilizing
Government on “Private Investment Opportunities in the
consultants who worked on several thematic and sub-
Bangsamoro” that commenced in November 2013. Both
thematic areas of the plan and for deploying consultants
the aforementioned study and workshops have provided
also in the BDP Core Planning Team.
vital inputs in the formulation of the BDP.
We acknowledge the very important contributions of the
One herculean challenge in formulating the Plan was the
agencies of the United Nations (UN) and the International
inaccessibility of some available data and other statistics
Organization on Migration (IOM) that addressed potential
that were needed in carrying out the analysis by the
xiii
consultants and technical staff of the BDP team. Getting
Society Organizations Platform for Peace (MCSOPP) for
these needed data would have been impossible without
contributing to the successful formulation of this Plan.
the cooperation of the different regional and national
Without their sincere and untiring efforts, this project
line agencies of the government. In particular, we would
would have remained a dream.
like to express our thanks to the consistent support of the
National Economic and Development Agency (NEDA),
Lastly, our sincere gratitude goes to our principal, the
Office of the Presidential Adviser on the Peace Process
MILF Central Committee, particularly the Honorable
(OPAPP), and the Department of Finance (DOF) for
Chairman Al-Haj Murad Ebrahim for entrusting to us
facilitating the timely cooperation of various government
this difficult mission. It is through their inspiration and
agencies.
guidance that we were able to accomplish this Plan.
Also, we are deeply indebted to all members of the
Finally, all our praises and thanks belong to our Almighty
BDP Project Steering Committee, BDP Core Planning
Allah for giving us the strength, perseverance, and
Team, BDP Advisory Council, and BDP focal persons,
wisdom to fullfil a daunting task—the preparation of
as well as local and international consultants and non-
the BDP. May this Plan be instrumental in realizing
government organizations such as the Consortium of
our dream for a dynamic, peaceful, and prosperous
Bangsamoro Civil Society (CBCS) and the Mindanao Civil
Bangsamoro.
DR. SAFFRULLAH M. DIPATUAN
Chairman, Bangsamoro Development Agency
Chairman, BDP Project Steering Committee
xiv
2
JUST AND LASTING PEACE AND DEVELOPMENT IN THE BANGSAMORO:
THE VISION OF THE BANGSAMORO DEVELOPMENT PLAN
We, the Bangsamoro people, under the guidance of the Almighty Allah,
envision the Bangsamoro as a just, peaceful, and prosperous society
of empowered people and communities, enjoying a dignified quality of life
enhanced by inclusive and sustainable economic opportunities.
In pursuit of this envisioned society, the Bangsamoro shall be supported
by responsive, participatory, and transparent governance systems
that are reflective of the Bangsamoro’s distinct cultural identity,
and the right to self-determination.
The Comprehensive Agreement on the Bangsamoro (CAB)
Guided by the Bangsamoro Development Framework
is the shared victory of the Bangsamoro and the Filipino
(BDF), embedded in this vision of attaining a “just,
people as a whole, paving the way for the lasting resolution
peaceful, and prosperous society,” are the following
of armed conflict in Mindanao and the establishment of
principles:
the Bangsamoro Government as a meaningful platform for
self-governance. However, the CAB and its component
• Inclusiveness—guaranteeing that the benefits of
agreements are but part of a longer journey. Despite its
economic growth and the dividends from the peace
potential natural and human resources, the envisioned
process shall be shared by all stakeholders in the
Bangsamoro core territory has historically been the
Bangsamoro territory, regardless of political or
depressed region in the country. Plagued by limited
ethnic affiliation, gender, or creed;
livelihood opportunities, inadequate social services,
inadequate institutions, and deep political, cultural and
• Sustainability—ensuring
that
any
growth
or
economic inequity, generations of systemic injustice and
development strategy pursued should not be at
armed violence in the Bangsamoro have created serious
the expense of access, use and enjoyment of God-
development challenges that must be overcome.
given natural resources by future generations of
Bangsamoro;
It is in this context that the Bangsamoro Development Plan
(BDP) seeks to articulate the Bangsamoro people’s most
• Accountability—requiring that both the public
fundamental needs and aspirations. It acknowledges that
and private sectors be responsive to the needs of
enduring peace and stability can be attained through just,
the Bangsamoro’s constituents, that active citizens’
inclusive, equitable, and highly tangible socioeconomic
participation in all areas of development in the
rehabilitation, reconstruction, and development that
region be encouraged, and that transparency and
address the underlying causes of conflict in Bangsamoro
accountability mechanisms in the use of public
communities.
resources and funds be built;
xv
• Cultural sensitivity—requiring that development
strategies be respectful of the culture and identity of
and to freely pursue their economic, social, spiritual,
and cultural development.
the various ethno-linguistic groups in the Bangsamoro
territory, in recognition of the collective struggle to
Attaining a vision is a long-term agenda, and the aspiration
build a just, humane, and prosperous society;
to a truly just, peaceful, and prosperous Bangsamoro as
stated above is no exception. Decades of hard work and
• Self-reliance—recognizing that the strength of the
sustained resource investments will be needed to reach
Bangsamoro lies in its ability to build and develop
wide latitude of development, let alone full transformation
its internal capacities, mobilizing local talents and
of the Bangsamoro into a normalized society with a robust
resources as the basis for just and equitable external
and diversified economy. Hence, this Plan provides a clear
partnerships in and outside the region; and
roadmap for immediate post-Agreement rehabilitation
and development, parallel to the ongoing political
xvi
• Self-determination—upholding the collective rights
and normalization transition that seeks to address the
of people to determine their own future, and by
socioeconomic roots of the Bangsamoro Question with
virtue of that right, determine their political status,
honor, justice, and dignity for all.
Introduction
2
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1
1
Introduction
1
1
Introduction
A. Background
On the 27th of March 2014, the Moro Islamic Liberation
and redeployment of units of the Armed Forces of
Front (MILF) and the Government of the Philippines
the Philippines (AFP). Measures toward justice and
(GPH) signed the Comprehensive Agreement on the
reconciliation during the transition period, as well as
Bangsamoro (CAB). As the culmination of 17 years of
comprehensive socioeconomic programs, will allow
peace negotiations, the CAB paves the way for the just
communities to “achieve their desired quality of life,
and peaceful resolution of armed conflict in Mindanao
which includes the pursuit of sustainable livelihoods
and the establishment of the Bangsamoro Government.
and political participation within a peaceful deliberative
1
society.”2 The Framework Agreement on the Bangsamoro
The CAB and its constituent parts have set in motion
(FAB) further commits the Parties to “intensify…efforts
a process of transition from the Autonomous Region
for rehabilitation, reconstruction and development of the
in Muslim Mindanao (ARMM) to a new Bangsamoro
Bangsamoro.”3 These processes are inherently political
political entity. The Bangsamoro Transition Commission
and are subject to continued negotiation between the
(BTC) has drafted a Bangsamoro Basic Law (BBL)
Parties.
that, following Congressional and popular approval
through a plebiscite, will lay the legal foundations for
It is against this background that the Bangsamoro
the autonomous region. Once the BBL is passed, a
Development Agency (BDA)—as the MILF’s mandated
Bangsamoro Transition Authority (BTA) will assume all
agency to “determine, lead and manage rehabilitation
devolved powers of the new political entity and function
and development efforts in conflict-affected areas,”4 and
as the interim Bangsamoro government until elected
with more than a decade of experience in delivering
officials can assume office following elections in May
development
2016.
Bangsamoro areas in coordination with international
and
humanitarian
assistance
across
partners—was tasked by MILF Chairman Al Haj Murad
2
Parallel to the political process of establishing a new
Ebrahim “to coordinate with donor and funding partners,
institutional framework for governing the Bangsamoro
to conduct needs assessment in the Bangsamoro
will
which
immediately, and to expedite the completion of the
communities affected by the decades of armed conflict
formulation of the Bangsamoro Development Plan
in Mindanao can return to a peaceful life free from
(BDP).”5 The directive echoes provisions in the FAB
fear of violence and crime. This will include systemic
and the Annexes on the importance of the BDP as a
policing reforms, decommissioning of MILF forces,
development blueprint for the Bangsamoro.6
be
a
normalization
process
through
Introduction
B. Objective
providing strategic directions for regular delivery and
basic services in Bangsamoro communities during
fundamental tenets of equity and inclusiveness. As
and beyond the transition period;
reaffirmed by Chairman Murad in his statement at the
4.Assist the BTA in taking a leadership role in the
signing of the CAB, the Agreement “is not only for the
implementation of the post-conflict development
MILF. It is for the MNLF as well, as much as it is for all
process;
the Muslim ethnic tribes, the Christian settlers, and the
Peoples
in
the
prospective
5. Help facilitate a seamless institutional transition that
Bangsamoro
will take place in 2016 as provided for by the FAB;
Government territory.”7 In this regard, the BDP has been
and
crafted in close collaboration with national and regional
6. Identify and recommend priority projects to the BTA.
government agencies, civil society organizations, and
development partners, and based on extensive communitylevel
consultations.
The
Bangsamoro
Development
Framework (BDF) is based on the frameworks of
sustainable human development and peacebuilding, with
the BDA core values as its value system and ethic.
As a plan crafted in the context of communities emerging
from and still experiencing conflict, the BDP proceeds
from a peacebuilding perspective. It recognizes that the
usual approach8 to development planning cannot apply
to the Bangsamoro’s specific situation, given serious
market imperfections and market failures caused by the
conflict. The primordial goal during the transition from
violence to peace, therefore, is attaining stabilization and
normalization—a precondition for achieving sustainable
and inclusive growth in the subsequent years.
The primary objective of the BDP is to provide short- and
medium-term
1
3.Sustain the momentum of the peace process by
In formulating the Plan, the BDA is guided by the
Indigenous
2
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vision,
strategy,
and
recommendations
for the socioeconomic recovery and development of
the Bangsamoro during the transition period (2015 to
mid-2016) and following installation of the Bangsamoro
Government (mid-2016 and beyond). More specifically,
the short- and medium-term objectives of the BDP are to
enable the Bangsamoro to:
1. Provide a development plan for the people of the
Bangsamoro;
2. Build mechanisms of local participation that will
ensure sustainability and ownership of development
planning and implementation;
The focus of the BDP is on the Bangsamoro transition
period, as the Bangsamoro Parliament, the entity mandated
to identify and determine development programs and
projects for the Bangsamoro area, will become operational
in mid-2016.
C. Outline of the Plan
Against this background, guided by an assessment of
the current situation in the Bangsamoro and informed
by communities and stakeholders of the region, the
BDP provides recommendations in six cluster areas,
consistent with the BDF: (1) economy and livelihood; (2)
infrastructure; (3) social services; (4) environment and
natural resources; (5) culture and identity; (6) governance
and justice as related to the goals of normalization and
development.
Recommendations in each cluster area include policy and
operational inputs on the key crosscutting areas of gender,
youth, and peacebuilding.
The BDP is divided into 15 chapters:
•
Chapter 1 presents the background, objective, and
outline of the Plan.
• Chapter 2 provides a brief historical narrative of the
Bangsamoro struggle and peace process as the context
of the BDP.
• Chapter 3 explains the methodology employed in the
formulation of the BDP and its limitations; and presents
the philosophy behind the BDF.
3
• Chapter 4 assesses the current situation in the
•
Chapters 7 to 12 further break down the strategy
Bangsamoro area, including the regional development
into sectoral targets and recommendations for the six
challenges and opportunities involved in breaking the
thematic areas of the BDF.
cycle of conflict, poverty, and underdevelopment.
•
Chapter 13 outlines the proposed implementation
• Chapter 5 presents the results of Community Visioning
arrangements and financing modalities to ensure
Exercises (CVEs) conducted by the BDA to determine
that recommendations are effectively and efficiently
the needs, aspirations, and sources of dissatisfaction in
implemented.
selected Bangsamoro communities. It also links to the
•
•
Chapter
14
identifies
possible
implementation
current situational assessment in the Bangsamoro as an
challenges that will be encountered and proposes
attempt to validate the findings.
mitigating measures to address these risks.
Chapter 6 articulates a strategy to achieve the vision
•
Chapter 15 outlines a Results-based Monitoring
of the BDP and provides short-term recommendations
and Evaluation system to track the progress of
and indicative directions for the medium term to
implementation and lessons learned.
realize the vision for the Bangsamoro.
Listings of priority programs are provided in Annex A.
NOTES
1 Through the Agreement, the MILF and the GPH commit “to protect and enhance the right of the Bangsamoro people and other inhabitants in the
Bangsamoro to human dignity; reduce social, economic and political inequalities; correct historical injustices committed against the Bangsamoro;
and remove cultural inequities.” Refer to the “Comprehensive Agreement on the Bangsamoro,” March 27, 2014.
2 “The Framework Agreement on the Bangsamoro,” October 15, 2012.
3 Ibid.
4 The BDA was established pursuant to the “Agreement on Peace Signed Between the GPH and the MILF on June 22, 2001,” which is known as the
“Tripoli Agreement of 2001,” and the “Implementing Guidelines of the Humanitarian, Rehabilitation, and Development Aspects of the GPH-MILF
Tripoli Agreement of 2001,” which was signed on May 7, 2002.
5 This was a directive from the MILF Central Committee to the Bangsamoro Development Agency Chairman Dr. Saffrullah M. Dipatuan on March 22,
2013.
6 The “Framework Agreement on the Bangsamoro,” Section VII, 4C instructs the Bangsamoro Transition Commission to coordinate development
programs in Bangsamoro communities with BDA, BLMI, and others; “Annex on Revenue Generation and Wealth Sharing,” Section XI stresses the
need to formulate the BDP; and the “Annex on Normalization,” Section G, item number 6 mentions that socioeconomic interventions shall be aligned
to the BDP.
7 Statement of Chairman Al Haj Murad Ebrahim at the signing of the “Comprehensive Agreement on the Bangsamoro,” Malacañan Palace, Philippines
on March 27, 2014.
8 The orthodox manner of formulating development plans is anchored in the dynamics of the market, with sectoral concerns fleshed out based on a
functioning market system. Such conditions cannot be presumed for many communities just emerging from a long period of conflict.
4
History and Analysis of Conflict in the Bangsamoro
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2
2
History and Analysis of
Conflict in the Bangsamoro
5
2
History and Analysis of
Conflict in the Bangsamoro
A. A Brief History of the Bangsamoro
Struggle
The history of conflict in Mindanao can be traced back
the customs and traditions of the Moros, led to massive
to Spanish colonization in the 16
dispossession of Moro lands by settlers and private
th
century. By then,
Islam had already taken root in Mindanao,
9
having
investors.
been introduced in the 13 century by Arab traders and
th
promoted by missionaries from Indonesia and Malaysia
After the Philippines gained independence from the
in the 15 and early 16 centuries. In line with Islamic
United States, a series of land resettlement programs in
tradition, a governance structure was in place in the form
Mindanao in the 1950s and 1960s further accelerated
of Sultanates.
this dispossession. The resettlement programs were
th
th
10
undertaken to ease the social unrest spawned by the
The ability of the Muslims to thwart successive attempts
Communist-led Huk rebellion in the islands of Luzon
of the Spanish colonial forces to subjugate them set
and the Visayas and, purportedly, to further develop
their people apart from the northern inhabitants of the
Mindanao by exploiting its vast natural resources.14
Philippine archipelago, most of whom were conquered
In the late 1960s and early 1970s, tension increased
and converted to Christianity. Deep distrust and
between the settlers and Moros as land scarcity grew and
suspicion
centuries-old distrust continued between the two groups.
11
were cultivated by the colonizers among
the Christian converts against their Muslim brothers as a
way of ensuring their control of most of the country and
The
contemporary
armed
conflict
between
the
its inhabitants. Intermittent wars were fought between
government in Manila and the Moros was triggered
the Spanish invaders and their local Christian allies and
by the Jabidah massacre in 1968,15 which led to the
Muslim fighters throughout three centuries of Spanish
establishment of the first Moro separatist groups initially
colonial rule.
with the founding of the Moro Independence Movement
(MIM) and eventually the Moro National Liberation Front
The advent of American colonial rule did little to
(MNLF).
change the situation. The American regime passed a
series of land laws12 that favored settlers and private
The declaration of martial law by President Ferdinand
corporations at the expense of the Moros. This, along
Marcos in 1972 transformed the conflict from a
with the implementation of land titling programs in
simmering rebellion into a full-blown war. Ultimately
Mindanao anchored in a property rights regime alien to
realizing that he could not achieve total victory against
13
6
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2
the Moro combatants, Marcos initiated the signing of
in the displacement of more than a million people, with
the 1976 Tripoli Agreement with the MNLF. Under this
high human and physical costs to the entire country.
agreement, the MNLF would drop its separatist goal in
Following Estrada’s impeachment and ouster in 2001,
favor of creating an autonomous government for the
President Gloria Arroyo reversed her predecessor’s
Moros. In the years that followed, the conflict returned
aggressive policy and declared an “all-out peace” stance
to being a low-intensity rebellion, with the Central
toward the MILF. Peace negotiations began but broke
Government in Manila implementing its own definition
down when the government unilaterally attacked MILF
of autonomy for the Moros.
positions in 2003, resulting in the displacement of more
than a half a million people.
Dissatisfied with the outcome of the Tripoli Agreement,
the MILF led by Chairman Salamat Hashim, formally
Later that year, the signing of a ceasefire agreement with
broke away from the MNLF in the signing of instrument
the MILF paved the way for resumed negotiations, which
December 30, 1977. Chairman Salamat distinguished the
culminated in the 2008 Memorandum of Agreement on
MILF from the MNLF by stressing not only a nationalist
Ancestral Domain (MOA-AD). The MOA-AD provided
but also an Islamic agenda.
for greater autonomy for the Bangsamoro to govern their
affairs and an expanded ARMM territory. However, it
Following the fall of the Marcos dictatorship in 1986,
was challenged in the Philippine Supreme Court and
under the government of President Corazon Aquino,
was ruled unconstitutional. There followed another
a new Philippine Constitution was enacted in 1987
major outbreak of armed violence between some MILF
that included provisions for autonomy in Muslim
forces and government troops, displacing some 700,000
Mindanao and the Cordillera Region. This opened further
people.
negotiations between the GRP and the MNLF and led to
the signing of the 1996 Final Peace Agreement between
It was not until mid-2010, with the newly elected
the GRP and MNLF during the administration of President
government of President Benigno Aquino III, that
Fidel V. Ramos. The agreement provided for the creation
negotiations resumed. In early 2011, President Aquino
of the Southern Philippines Council for Peace and
personally met Chairman Murad in Tokyo to assure him
Development (SPCPD) as a transitory institution before
of his government’s sincerity in seeking lasting peace
the establishment of an expanded region to be known as
with the MILF. In October 2012, the GPH and MILF
ARMM.
peace negotiating panels, through mediation by the
Malaysian Government, reached a breakthrough and
The MILF distanced itself from the agreement but
signed the Framework Agreement on the Bangsamoro
committed to not standing in the way of peace. However,
(FAB).
noncompliance by both sides to the peace agreement
and failure to deliver the peace and economic growth
A series of negotiations provided the details of the FAB,
promised to MNLF constituents resulted in increased
which are contained in four annexes pertaining to: (1)
support across the region for the MILF. The MNLF’s
Transitional Arrangements and Modalities; (2) Wealth
credibility was further eroded in 1998 when the new
Sharing and Revenue Generation; (3) Power Sharing;16
administration of President Joseph Estrada did not give
and (4) Normalization. The signing of the Comprehensive
full support to the peace agreement.
Agreement on the Bangsamoro signaled the start of a new
phase in the relationship between the MILF and the GPH
In 2000, concerned about the MILF’s growing strength,
and the difficult task of implementing the peace accord
the Estrada regime declared an “all-out war,” resulting
as embodied in the proposed BBL.
7
B. Conflict and Development Analysis of the
Bangsamoro
Conservative estimates of deaths due to wars in
Mindanao put the fatalities at nearly 120,000 from 1970
to 1996, with even higher figures for protracted and
cyclical displacement.17 Purely economic assessments
of the costs of conflict range from a conservative USD 2
to 3 billion for the period from 1970 to 200118 to USD
10 billion for the period from 1975 to 2002.19 The latter
considers not only direct output losses but also other
factors, such as forgone investments and capital flight.
Using USD 10 billion as the reference figure and based
on the average exchange rate between 1975 and 2002
of PhP 22.5 to the US dollar, this amounts to PhP 225
billion or around PhP 8.3 billion per year—losses that
have translated to profound social and economic impacts
and forgone opportunities for both the Bangsamoro and
the Philippines as a whole.20
As a development plan for a conflict-affected area, the
BDP is anchored in an understanding of the complex
security, justice, and economic factors that drive and
perpetuate conflict and its corresponding development
costs. The 2005 Joint Needs Assessment (JNA) for
Reconstruction and Development of Conflict-Affected
Areas in Mindanao21 illustrates how injustice in its
various manifestations underpins the historical conflict
in the Bangsamoro. These forms of injustice escalate into
structural violence and armed confrontation because of
commits the parties to three interlocking aspects of the
peace process: (1) Security Aspect (2) Rehabilitation,
Humanitarian
and
Development
(3)
to be done in support of structural and security
sector reform, particularly in the transition period,
the full implementation of the CAB will require
targeted socioeconomic responses that will enable
the Bangsamoro to immediately feel the benefits of the
peace dividends and improve their overall welfare.
The signing of the CAB is a significant step in reducing
incidences of state-minority contestation, or vertical
conflict, which pits non-state armed groups against
government forces. Data from the GPH Coordinating
Committee on the Cessation of Hostilities (CCCH) (see
Figure 1) show no armed skirmishes between the GPH
and MILF since the breakthrough in peace negotiations
in 2012, which provided an enabling environment for
stable communities and continuous socioeconomic
delivery.22
Other drivers of conflict in the Bangsamoro area take the
form of inter-communal (between political and ethnolinguistic groups) and inter-elite violence (rido or local
clan feuds, such as over political posts and control over
Figure 1: Annual Trend of GPH-MILF Armed Skirmishes
(2002–2014)
natural and mineral resources, crime (e.g., cattle rustling,
kidnapping), local election disputes, and government
policies, such as the declaration of “all-out war” against
the MILF by the Estrada administration, among others.
In response to the cycles of violence and insecurity
driven by widespread economic marginalization and
political disenfranchisement in the Bangsamoro, the
8
and
Ancestral Domain Aspect. While much work remains
certain key triggers, including competition for scarce
CAB, specifically the Tripoli Agreement of 2001,
Aspect,
Source: GPH-CCCH Info Brief (March 2012)
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2
resources).23 While distinct, these horizontal conflicts
in this Plan are therefore different from those in the parts
are often closely related to the vertical conflict, and
of the Philippines that are not affected by conflict.
one spills over into the other.
24
Another driver of
conflict is the prevalence of the shadow economy,
For the short term, the Plan recommends actions
or “nonconformist economic activities”
and
25
such as the
interventions
that
will
promote
stabilization
illicit weapons and drug trade, kidnap-for-ransom
and strengthen the legitimacy of the Bangsamoro
activities, informal credit and land markets, and cross-
Government. The Plan recognizes that how development
border trade, as it intersects with the prevalence of
is implemented in the Bangsamoro matters as much as
warlordism and clan-based violence. Economic rents
how much is spent. Based on the principles described
from the shadow economy are used to consolidate
in the next chapter, the BDP promotes distribution of
political influence and patronage, reinforcing overall
resources based on need and equity, to ensuring fair and
insecurity and further undermining weak institutions.
equal access to development opportunities for all in the
26
Bangsamoro.
The Plan gives priority to development
Injustice and insecurity are central to the narrative of
approaches that are people-centered and that bring
failed development in the Bangsamoro. Economic
communities together for joint planning and decision-
development by itself cannot address the historical
making, as these have been proven to build the necessary
grievances of the Bangsamoro or the insecurity that
social cohesion.
affects large parts of the Bangsamoro territories. But
development can play a part in supporting the political
As a conflict-sensitive and peacebuilding plan, the BDP
and security transitions that will play out in the coming
is ultimately built around developing stronger institutions
period. Accordingly, the BDP is a peacebuilding
that will deliver better services, more effective justice, and
plan that analyzes and addresses development issues
decent jobs and livelihood for the Bangsamoro people.
through the lens of conflict. It is driven by a strong
Such institutions will require open and transparent
intention to address injustice and directly tackle
governance, partnerships between government and civil
sources of discontent that drive conflict. The priorities
society, and a willingness to openly engage with citizens.
9
NOTES
9 See Rodil (2009), Houben (2003), and Abubakar (2005).
10 There were four sultanates, namely: the Sultanate of Sulu, which was based in Sulu but also ruled the neighboring islands and coastal areas of
what is now known as the Zamboanga Peninsula; the Sultanate of Maguindanao, which covered the south-central portion of Mindanao Islands;
the Four Principalities of Lanao, which ruled the eastern and central portion of Mindanao; and the Sultanate of Kabuntalan in Maguindanao. For
historical accounts of the rise and fall of the Sultanates in Mindanao, refer to Majul (1973 and 1985), Tan (1977, 1989 and 1993), Muslim (1994),
Tanggol (1993), and Rodil (2009).
11 In fact, the Spaniards used the term “Moros” to refer to the Islamized inhabitants of Mindanao to distinguish them from the Christian inhabitants
of Luzon and the Visayas.
12 Refer to the 1902 Philippine Bill, which effectively upheld Spanish cadastral laws; the 1902 Land Registration Act, which established the
requirement of a “Torrens title” as proof of land ownership; and the 1905 and 1918 Public Land Acts, which determined all unregistered and
untitled lands to be owned by the State, and that such public lands may be claimed and registered through the free patent system.
13 This is the Regalian doctrine, which was first introduced during the Spanish colonial period and became the basis for all land laws as established
in the 1935, 1973 and 1987 Philippine Constitutions. It stipulates that all lands of the public domain and other natural resources belong to the
King of Spain and later to the State as the natural successor.
14 See Majul (1973 and 1985), Tan (1977, 1989, and 1993), and Mastura (2004).
15 This involved the killing of at least 28 young Moro military trainees by their superiors to prevent a leak of the Philippine Government’s intent of
fomenting unrest in Sabah, to which the Sulu Sultanate has a claim.
16 An Addendum on Bangsamoro Waters complements the “Annex on Power Sharing.”
17 See World Food Programme and World Bank (2010).
18 Using an exchange rate then of PhP 54.5 to USD 1, this will amount to PhP 108 to PhP 158 billion for the entire period or around PhP 5.0–7.5
billion per year. See Barandiaran (2002).
19 See Schiavo-Campo and Judd (2005). This is further supported by the United Nations Development Programme (2005).
20 Average exchange rate calculated using data from World Bank World Development Indicators (1975–2002).
21 See World Bank et.al (2005). The 5-volume report is divided into sectoral concerns, namely: human development, rural development, finance and
private sector development, local governance and institutions, and an integrative report which serves as the fifth volume. Each sectoral report
rendered a discussion of the current situation in their sector, identified the problems, formulated recommendations to address these problems,
and identified the menu of activities that need to be undertaken and their funding requirements. The recommended activities were divided into
three implementation periods: “immediate term” (start at year 1 but implementation can go beyond year 1); “short term” (start in year 2 but
implementation can go beyond 1 or 2 years); and “medium term” (start in year 4 and 5 but implementation can go beyond 2 or 3 years). To obtain
the data for the needs assessment, the study employed key informant interviews, focus group discussions, and analysis of secondary data.
More than 3,000 individuals and representatives of institutions served as respondents of the study coming from 19 municipalities in 7 provinces
considered as Conflict-Affected Areas (CAAs).
22 See the “GPH-CCCH Update Report” (2012).
23 State-minority contestation is also known as “vertical conflict” in conflict literature; inter-elite and inter-communal contestations are classified as
“horizontal conflict.”
24 See Adriano and Parks (2013) for additional information on the typology of conflict in the Bangsamoro.
25 Lara and Schoofs (2013).
26 Ibid.
10
Plan Methodology and the Bangsamoro Development Framework
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3
3
Plan Methodology and the
Bangsamoro Development
Framework
11
3
Plan Methodology and the
A. Guiding Principles
The BDP is anchored in the Bangsamoro Development
The BDP’s technical recommendations were formulated
Framework (BDF) based on the BDA core values, with
by thematic experts, validated at the ground level, and
the dual objectives of sustainable human development
complemented
and peacebuilding. In line with the CAB implementation
(CVEs) that were conducted to define the vision, needs
principles of committing the parties to “acknowledge the
and aspirations, and sources of dissatisfaction across the
identity and legitimate grievances of the Bangsamoro”
Bangsamoro.
while affirming the individual rights of all individuals
in the community, the BDP is formulated through
wide participation in all sectors. Thus, the Bangsamoro
political entity will protect both individual and collective
rights while representing the diversity of the Bangsamoro
population in a truly democratic manner and enshrining
shared accountability.
Furthermore, Section XI of the Annex on Wealth
Sharing and Revenue Generation of the CAB states
that the development plan for the Bangsamoro shall be
formulated “in a manner that is consistent with national
development goals but recognizing unique needs and
aspirations of the Bangsamoro people.”
These principles require that the BDP be:
1. Anchored in the BDF;
2. Inclusive and respectful of the cultural diversity of
the Bangsamoro as enshrined in the CAB;
3. Informed by views from Bangsamoro communities
both across the potential Bangsamoro Core Territory
(BCT) and the adjacent expansion areas; and
4. Aligned with relevant national and regional
development plans.27
12
by
Community
Visioning
Exercises
B. The Bangsamoro Development
28
Framework
At the core of the BDF are the mutually reinforcing
frameworks of Peacebuilding and Sustainable Human
Development (SHD) (see Figure 2). By pursuing peace
in Mindanao and seeking political settlement of the right
to self-determination, the Bangsamoro can begin to build
a stable and prosperous society with a strong economy,
reliable security, respect for cultural diversity, protection
of the environment, and strong social services.
The
peacebuilding
framework
will
deliver
an
environment conducive to the political settlement
concerning the right to self-determination. At the
center of this are inclusiveness and consideration of all
stakeholders and of the drivers of violence and conflict in
the Bangsamoro.
The peacebuilding framework commits the Bangsamoro
to: (1) consulting all stakeholders; (2) increasing the
understanding of the structures that breed violence; (3)
developing capacities to avoid and resolve conflict; (4)
creating avenues of cooperation between communities;
Figure 2: Bangsamoro Development Framework
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3
dividends across communities. It will also necessitate
providing a platform for non-Bangsamoro to participate
in decisions that affect them.
On the other hand, intra-community conflict needs to
be reduced to allow for a negotiated peace, a strong and
accountable governance system, and services that ensure
positive social outcomes. These are necessary conditions
to address the deep economic, cultural, environmental,
and security challenges in the region.
With a well-formulated plan based on specific sectoral
challenges, an integrated approach can deliver SHD
based on priorities identified by the Bangsamoro in line
with their right to self-determination.
In formulating these mutually reinforcing peacebuilding
Source: BDA (2014) modified from Abubakar (2013)
and SHD Frameworks, the BDP is guided by core values
that inform the approach to all interventions, namely:
with the ultimate goal to (5) helping attain reconciliation
among communities. By reducing inter- and intra-
1.Vicegerency—Man, according to the teachings of
community conflicts across the Bangsamoro, which are
Islam, is the representative and vicegerent of the
a major source of violence and distract from human and
Almighty Allah on Earth.29 This world is a trust and
economic development, it becomes possible to resolve
man is its trustee. Prophet Mohammad (peace be
longstanding state-minority contestation over the right to
upon him) also said: “All of you are shepherds and
self-determination.
all of you are responsible for your herds: The leader
is a shepherd and is responsible for his subjects.”
The political settlement between the GPH and the
MILF, supported by the international community and in
2.Transparency—In accordance with the Philippine
collaboration with conflict-affected communities, NGOs,
Constitution, the Bangsamoro will make “full
private and other actors, becomes the foundation of the
public disclosure of all its transactions involving
SHD Framework. At the center of the SHD Framework is a
public interest” and guarantee “the right of
strong commitment to governance- and institution-building
the people to information on matters of public
to enable the Bangsamoro to address the substantial
concern.” This is also enshrined in Islam, where
development challenges in the Bangsamoro after many
Muslim leaders believe that Allah (glorified and
years of neglect. This must be accompanied by effective
exalted be He) knows what is in one’s mind (i.e.,
social services that are essential to ensure positive health,
Allah said, “And I know what you reveal and what
education, and social outcomes.
you have concealed.”)
Inter-community conflicts (i.e., between Bangsamoro
3.Piety—God-consciousness
consists
in
practical
and settlers) will need to be addressed through inclusive
manifestation of one’s faith in one’s daily life,
measures, such as the equitable distribution of peace
which means desisting from everything that
13
is disapproved of or forbidden. Man must be
shared accountability, meaning exercise of mutual
in a state of readiness to undertake all that is
concern by both officers and the public, and above all,
commanded and observe the distinctions between
accountability to the Almighty Allah, for “indeed, Allah
lawful and unlawful, right and wrong, and good
commands you to render trusts to whom they are due.”
and bad in life.
The importance of these values and principles of governance
4.Trustworthiness—This is a virtue everyone should
cannot be overemphasized under the BDF because it views
possess and practice, since everyone occupies a
governance and human development as indivisible. The
position of trust as a vicegerent. All believers will
soundness of governance depends on whether it sustains
be questioned in the life hereafter on how they
human development, while an educated, healthy, and
kept their trust.
prosperous society, in return, is required to sustain good
governance. These values and principles are not only
5.Justice—Justice is equality in the observation
of rights and in abiding obligations without
discriminations for any reason, such as religion,
race, color, or social status. Social justice means
giving each what he or she deserves, with financial
and other benefits in society being distributed
in order to attain equality in the fulfillment of
basic needs. It also ensures greater opportunities
for people so that each person has a chance to
improve oneself and one’s overall welfare.
6.Inclusiveness—Only inclusive peace will end the
conflict, so no section of society shall be left out.
Inclusiveness is enshrined in Islam as a way of life,
at all times and places and for all people.
embedded in all the human development areas but also in all
the components of peacebuilding.
C. Technical Analysis
The analysis and recommendations in this Plan are derived
from separate studies conducted on specific thematic areas30
by consultants and Bangsamoro experts recommended by the
BDA. In writing their reports, thematic teams closely consulted
with relevant national and regional government agencies. After
an initial review of the literature and data to assess the current
situation and identify problems and gaps, the initial findings
were validated through focus group discussions (FGDs) and
key informant interviews (KIIs) in selected Bangsamoro sites.31
In line with the transition to the Bangsamoro Government,
the recommendations are divided into two clusters: (1) a
7.Excellence—A person attains the highest quality
transitional phase (2015 to mid-2016) when governance of
in words, deeds, and thoughts by identifying his
the Bangsamoro areas shall be transferred from the ARMM to
or her will with that of the Almighty Allah and
the BTA and the Bangsamoro Government; and (2) a medium-
harmonizing it with the Divine will to the best of
term phase of indicative recommendations (mid-2016 to
his or her knowledge and ability.
2022) when a new governance structure will be in place,
together with its newly elected set of officers whose mandate
8.Accountability—Accountability means not only
accountability to the people in accordance with
will include determining the development trajectory of the
Bangsamoro.
the constitutional provision that “public office is a
14
public trust, and all public officers and employees
Throughout the BDP formulation process, the technical
must at all times be accountable to the people,
approach, analysis, and recommendations benefited from
serve them with utmost responsibility, integrity,
inputs, recommendations, and validation from the Project
loyalty, and efficiency, act with patriotism and
Steering Committee, the BDP Advisory Council, and the BDA
justice, and lead modest lives.” Rather, it is also
Board of Directors (see Table 1).
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3
Through a series of consultations and forums to generate
socioeconomic wellbeing of the people; (3) inclusivity;
input and feedback, thematic drafts were presented to a
(4) promotion of transparency and accountability in
broad range of stakeholders, both inside and outside the
government transactions to achieve good governance;
Bangsamoro, including national and regional government
(5) attainment of a just and more equitable society; (6)
representatives,
society
promotion of peace, stability, and the rule of law; (7)
organizations, academic institutions, stakeholder groups,
preferential treatment for the poor (particularly vulnerable
MILF specialized agencies, and development partners.
groups); (8) reduction of vulnerabilities among the poor
officers
of
the
BTC,
civil
D. Clamor from the Ground
To ensure that the BDP adequately addresses the unique
needs and aspirations of Bangsamoro communities and
accounts for the cultural, ethnic, and religious diversity,
a series of ten32 one-day Community Visioning Exercises
(CVEs) was conducted across the proposed Bangsamoro
and expansion areas. Participants included members of
Moro groups (including both MNLF and MILF), settlers, and
also IPs, as represented by formal and informal community
leaders, and organized stakeholder groups (i.e., women,
youth, farmers, etc.). A comprehensive discussion of the
results and insights from the CVEs, cross-referenced against
similar past and parallel processes, is included in Chapter
5.
through climate change adaptation and implementation
of disaster-risk reduction and mitigation measures; and (9)
improvement and provision of adequate infrastructure to
further promote economic growth and development. Their
ultimate goal, therefore, is to improve the wellbeing of
individuals living in the area.
The strategies and visions of national and regional
development plans match the priorities identified from
the community consultations and are aligned with the
technical analysis of the development gaps in the BDP. In
turn, they have partially provided guidance to the BDP’s
recommendations. Annex C (Relevant National and
Regional Development Plans) presents a table summarizing
the national and regional development plans.
A round of Community Validation (CV) consultations
F. Limitations
was conducted on the draft BDP Integrative Report in the
In conducting the technical analysis of development gaps,
same areas and in additional identified key locations. This
thematic consultants and the Bangsamoro Development
ensured that the recommended interventions in the BDP
Plan Core Planning Team (BDP-CPT) found limited
were aligned with the identified needs and aspirations of
availability of highly disaggregated data. The analysis is,
the Bangsamoro communities. Technical validation was
therefore, based mostly on national data, disaggregated
also conducted to further ensure that the infrastructure
at the provincial and regional levels. Moreover, because
network, both existing and proposed, would achieve its
of the difficulty of obtaining data from municipalities and
goal of promoting connectivity and growth in the region.
barangays proposed for inclusion in the BCT, the ARMM
E. Review of Relevant National and Regional
Development Plans
The CAB provides for the formulation of a development
plan that is consistent with national development goals
while recognizing the Bangsamoro’s unique needs and
aspirations. A review of relevant national and regional
development plans reveals their key strategies and visions
to be as follows: (1) poverty reduction; (2) improved
was used as a proxy to the BCT.
Initial ideas were rendered on issues on normalization
and security given that the attainment of peace in the
Bangsamoro cannot be realized with socioeconomic
measures alone. However, because of the sensitivity of this
issue due to the ongoing negotiations between the GPH
and MILF negotiating panels, it was decided to remove
detailed discussion on this concern.
15
Table 1: List of BDP Themes, Components, and Participating Partners
Theme
Components
Development
Partners
Government Counterparts
(NGA & ARG)
a. Economy and
Livelihood
Agriculture, fisheries and agro-based industry, economy and
livelihood, agribusiness, halal industry, Islamic finance and
banking, regional cooperation
JICA, ILO, MTF
(FEF), ADB, FAO
NEDA, ARMM-RPDO, DA,
DTI, DPWH
b. Infrastructure
Transportation, economic-related infrastructure
JICA, ADB, WB
NEDA, DPWH, ARMM-RPDO,
ARMM-DPWH
c. Social
Education, reproductive health, child health and nutrition,
domestic water and sanitation, social support infrastructure
DFAT Australia,
UNFPA, UNICEF
DSWD, DepEd, DOH, DILG
d. Environment and
Natural Resources
Natural resources (including mines and other extractive
industries), power, DRRM, forest and watershed management,
conventional and non-conventional (renewable) energy and
climate change, hazard, risk and emergency response, urban
ecosystems management, ecotourism and biodiversity
JICA, UNDP
DENR
e. Governance and Justice Governance, Shari’ah justice system, fiscal autonomy
TAF, UNDP, MTF
f. Culture and Identity
MTF
g. Security
TAF
h. Cross-Cutting
Concerns
Gender, youth and other vulnerable groups, peacebuilding,
food and nutrition, security
IOM, UN-WFP,
UN-Women
Source: BDP-CPT
NOTES
27 These include the Aquino administration’s Social Contract with the Filipino People; the Philippine Development Plan 2011–2016 Midterm Update;
Mindanao Strategic and Development Framework 2010–2020; Mindanao 2020: Peace and Development Framework Plan 2011–2030; and the ARMM
Regional Development Plan (2010–2016) Midterm Update.
28 The Bangsamoro Development Framework is based on the doctoral dissertation of Ayesah Abubakar, Building Peace in Conflict Affected
Communities through the Sustainable Human Development (SHD) Framework: A Case Study of Mindanao.
29 This is akin to the Christian concept of “stewardship.”
30 Refer to Annex B for the full listing of different thematic areas addressed by consultants, Bangsamoro focal persons, and supporting donor
partners and national and regional government agencies.
31 Feedback from BDA, government agencies, international partners, civil society, and other stakeholders was incorporated into consultant outlines
prior to field validation.
32 Community Visioning Exercises were conducted in the following areas: (a) Central Mindanao, (b) Davao, (c) Southern Mindanao, (d) Zamboanga
Peninsula, (e) Basilan, (f) Lanao del Norte, (g) Lanao del Sur, (h) Sulu, and (i) Tawi-Tawi.
16
Current Situation, Development Gaps, and Opportunities in the Bangsamoro
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4
Current Situation, Development
Gaps, and Opportunities in the
Bangsamoro
17
4
Current Situation, Development Gaps,
and Opportunities in the Bangsamoro
A. Background
The Bangsamoro is located in the south of the Philippines
Bangsamoro region and have an average density of 1,070
and its proposed core territory consists of the following
persons per square kilometer.
(see Map 1):
The protracted nature of the conflict in the Bangsamoro
1. The present ARMM consisting of the provinces of
area, combined with years of limited investment and
Maguindanao, Lanao del Sur, Basilan, Sulu, and
geographical remoteness,33 has resulted in a vicious
Tawi-Tawi, and the cities of Marawi and Lamitan;
cycle of injustice, conflict and insecurity, poverty,
2. Cotabato City and Isabela City;
militarization, marginalization and deprivation, and
3.The municipalities of Baloi, Munai, Nunungan,
underdevelopment. Figure 3 illustrates the dynamic
Pantar, Tagoloan, and Tangkal in the province of
interrelationships of these conditions.
Lanao del Norte;
4. The thirty-nine (39) barangays in the municipalities
of Kabacan, Carmen, Aleosan, Pigkawayan, Pikit,
Figure 3: The Vicious Cycle of Injustice, Insecurity, and
Underdevelopment
and Midsayap in the province of North Cotabato
that voted for inclusion in the ARMM during the
2001 plebiscite; and
5. Other contiguous areas that may opt to be included
in the Bangsamoro region.
The total land area of the region is estimated at 1,488,353
hectares, with Maguindanao and Lanao del Sur having
the biggest land areas. The present ARMM constitutes the
largest area of the Bangsamoro at 87% of the total area of
the region.
There are four urban areas in the Bangsamoro region: the
cities of Marawi in Lanao del Sur, Lamitan and Isabela
in Basilan, and Cotabato City in Maguindanao. The
populations of these urban areas account for 18% of the
18
Source: BDP-CPT
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The uncertainty caused by armed conflict and insecurity
nets for vulnerable groups such as women, children,
diminishes the productivity of resources and discourages
youth, and Internally Displaced Persons (IDPs). The lack
investments and saving, resulting in poor economic
of productive jobs, combined with inadequate social
performance. Where conflict obstructs the needed
service delivery, inevitably results in reduced wellbeing
economic and political reforms and diverts activities from
and high poverty incidence.
the productive domains to the redistributive spheres, it
can precipitate a collapse in growth in both the short and
In
the long run.
institutions, the high poverty and greater deprivation
34
an
environment
characterized
by
inadequate
of livelihoods and social services fuel dissatisfaction
With low economic growth, few decent jobs are created,
and unrest, leading to increased conflict and a greater
resulting in high unemployment, predominance of low-
intensity of this vicious cycle of insecurity, poverty and
productivity jobs, and a high number of working-age
marginalization, and underdevelopment.
people opting out of the labor force. This, in turn, reduces
purchasing power significantly, leading to inadequate
Primarily using data from the ARMM as a proxy for the
demand and low revenue generation. The provision of
Bangsamoro area, this chapter presents the manifestation
social services, which relies on the government’s ability
of this cycle in the Bangsamoro area and key indicators
to raise revenues, is severely reduced and affects safety
of the development gaps and discusses some of the
Map 1: The Proposed Bangsamoro Core Territory (BCT) (2014)
Source: Using data from the CAB and the proposed BBL (2014)
19
development opportunities in the Bangsamoro that can
be leveraged to break the vicious cycle.
B.2. Employment
It would seem paradoxical that despite limited economic
opportunities in the Bangsamoro, unemployment at
B. The Vicious Cycle in the Bangsamoro
4.6% and underemployment at 12.3% are lower than
in the rest of Mindanao (5.3% and 22.9%, respectively)
B.1. Economic Performance
and the country (7.1% and 19.3%, respectively). But
Decades of injustice, conflict, and insecurity in the
such measurements hide actual weaknesses and are a
Bangsamoro
full
consequence of the fact that in a developing country
development of the Bangsamoro’s economic potential.
without unemployment insurance, most of the poor
Although it accounts for 3.5% of the Philippine
cannot afford to be unemployed and must take whatever
population, the ARMM contributes less than one percent
low-productivity occupation they can find.35
have
severely
undermined
the
of national output and has a per capita output less than
a quarter of the national average. While average annual
This can be seen in the more telling fact that 80.6%
growth in per capita GDP between 2009 to 2013 has
of employed persons in ARMM are in the “vulnerable
been strong across the country, reaching 3.4% nationally
employment” category—being self-employed or unpaid
and 3.3% in the rest of Mindanao, ARMM registered only
family workers. This is very high compared with the
a 1.0% average annual per capita GDP growth over the
38.3% national figure.36 Such employment is associated
same period.
with the low-productivity and low-income employment
options that are available to the poor. The majority of
Agriculture, Fishery and Forestry (AFF) is the main
these vulnerably employed people are male (73.5%),
component of output in the ARMM, representing 63.5%
self-employed (71.2%), and in the agriculture sector
of total value-added, with the services sector contributing
(82.0%). Young people comprise 18.7% of the vulnerable
a third and industry the remaining 5%. With the lowest
employed.
gross fixed capital formation in the Philippines, primarily
concentrated in agricultural inputs, (i.e., breeding stock
Another notable characteristic is the very low labor force
and orchard development), the Bangsamoro problem
participation rate in the ARMM, which at 56% is 10
is exacerbated by its specialization on the production
percentage points lower than in the rest of Mindanao.
of low value-added products combined with low
agricultural labor productivity. In recent years, the AFF
Women and youth make up a disproportionate share
sector experienced a decline in output. The services
of the potential but non-active workforce. Women’s
sector meanwhile is the primary driver of growth but is
participation in the labor force is typically lower because
constrained by very low public and private investment.
of housework and childcare but the nonparticipation
rate of 68% in the ARMM is significantly higher than
While
positive
economic
performance
does
not
immediately translate to improved welfare, stable
the national and Mindanao averages of 50% and 49%,
respectively.
and sustained growth and investment increase per
20
capita output and improve the economic opportunities
Meanwhile, almost a quarter of those aged between 15
available to the population. Increasing labor productivity
to 24 are neither in school nor in the workforce. Lacking
through investment and entrepreneurship is imperative
skills to participate productively in the labor market,
if production is to shift to higher value-added and more
the out-of-school youth are at high risk of poverty and
labor-intensive industrial and services sectors that are
disaffection, which potentially can lead them to violence
capable of leading growth.
and undermine social cohesion.37 The welfare impact of
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4
increasing work opportunities for women and the youth
Limited access to health facilities, lack of education
could be significant and their potential contribution to
and lack of funds, and unsanitary conditions resulted
output must not be underestimated.
in ARMM having the highest national mortality rate of
children under five years of age at 55 deaths per 1,000
B.3. Education
Due in part to poor prospective economic opportunities,
but also as a result of very low investment in schools
and teachers, school participation in the ARMM is much
lower than in the rest of the country. The net enrollment
rate in SY 2012 and 2013 in the ARMM was 72.5% in
primary and 26.1% in secondary education, compared
with the national averages of 95.2% and 64.6%,
respectively. Despite these low enrollment rates, school
overcrowding is very high, with a teacher-to-student
ratio of 1:52 and 1:54, respectively, and a classroom-tostudent ratio of 1:62 and 1:82, respectively, at primary
and secondary levels.
As a result, cohort survival between 2002 and 2010
averaged only 39% in primary and 64% in secondary
school, while the rest of Mindanao performed better than
the national averages, registering cohort survival rates of
77% and 73% in primary and secondary, respectively.
If this trend persists, the labor pool in the region will
consist mostly of unskilled workers. Median schooling of
only four years and simple and functional literacy rates in
the ARMM of 81% and 72% are the lowest in country,
compared with 96% and 86% nationwide.
B.4. Health, Sanitation, and Nutrition
A similar lack of investment in health and sanitation
has exposed the population, especially children, to
significant health risks. Only 37% of the population
have access to an improved water source such as a
community water system or piped deep well, while a
full third rely on natural sources such as springs, rivers,
or lakes, and a quarter have access to a simple dug
well. Only 22% of households have access to sanitary
toilet facilities or water-sealed toilets, compared with a
national average of more than 80%. Exposure to waterborne diseases in ARMM is very high as a result.
live births. Only 29% of children are fully vaccinated
by their first birthday, while 40% have received no
vaccinations. Under-5 mortality in the poorest household
quintile is three times higher than in the wealthiest
quintile and a child born to a mother without education
is four times more likely to die before the age of five,
compared to a mother with a college education.38 In
ARMM, 73% of households are in the lowest income
quintile and 33% of women aged between 15 and 49
have no education or did not complete elementary.
Maternal health also lags behind that of other regions
with a maternal mortality ratio of 67.35 deaths per
100,000 live births. While almost all women in the
country (96%) and in the rest of Mindanao (95%)
receive antenatal care from a skilled professional,
only 53% of women in ARMM are able to do so. In
addition, only 12.3% of births are delivered in a health
facility (compared with 61% nationwide), only 20.4%
are delivered by a skilled professional (compared with
72% nationwide), and only 20.4% of mothers receive
postnatal checkups (compared with 77% nationwide).
The ARMM also registered the highest unmet need for
family planning at 27.6%, compared with the 17.5%
national average.
Both acute (wasting) and chronic (stunting) undernutrition are prevalent in Mindanao. The ARMM
records 8.5% acute malnutrition prevalence among
children under 5, compared with the national average
of 7.9%.39 Meanwhile, stunting is a serious public
health problem, affecting 39% of children under 5 in
Mindanao, compared with 33.6% nationwide. Stunting
of growth in the first two years contributes to an elevated
risk of mortality, cognitive deficits, and increased risk
of adult obesity and non-communicable diseases. High
malnutrition among women, infants, and children
is a compelling issue in the ARMM and the rest of the
21
country. Among the consequences of malnutrition,
The discussion highlights the development challenges in
particularly
decreased
the Bangsamoro and how underdevelopment continues
economic productivity, not to mention poor health and
to fuel injustice and insecurity. The signing of the CAB
low quality of life.
and ongoing governance reforms in the region have
stunting
and
wasting,
are
raised expectations of positive transformation. However,
B.5. Poverty and Displacement
Poverty in the Bangsamoro remains high as a result
of limited access to basic services, limited economic
opportunities, and the disruption and uncertainty caused
by conflict. More than half of the ARMM population
(55.8% in 2012) lives in poverty (see Map 2)—that is, an
estimated 1.85 million people living below the poverty
threshold in 2012, almost three times the number in
limited
livelihood
opportunities,
social
service provision, weak institutions, and deep political,
cultural and economic inequity—exacerbated by armed
violence and resultant cyclical displacement—continue
to pose serious challenges to the development and
stabilization of the Bangsamoro.
Map 2: Poverty Incidence, by Province (2012)
1991. The poverty gap has also increased from 8.8% in
2009 to 13.1% in 2012, more than twice the national
average of 5.1%.
The protracted violent armed conflicts and insecurity in
the Bangsamoro created a class of IDPs that resulted in
massive migration to Luzon, Visayas, and other places
in Mindanao. Though many would like to return to
their original homes or communities, the majority have
already lost their land to new owners (i.e., legalized landgrabbing by settlers from Visayas and Luzon). Fulfilling
their aspirations to return to their original communities
will require addressing the highly complicated land issue
in the Bangsamoro. As for the displaced persons and
migrants, they should return to their places of origin and
should be given appropriate and sustainable economic
and livelihood programs. For IDPs who opt to stay
where they are currently resettled, a resettlement package
is needed to restart their lives and livelihoods.
The provision of humanitarian assistance for resettlement
and for those who have opted to return to their places of
origin has become more imperative with the signing of
the CAB because it can serve as one of the immediate
peace dividends for vulnerable groups.
Source: PSA (using FIES 2012 data) and PhilGIS (2013)
22
inadequate
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C. Development Gaps in the Bangsamoro
Table 2 presents selected development indicators in the
especially the private sector, for the Bangsamoro to attain
ARMM, the rest of Mindanao, and the Philippines to
2013 national averages, given the region’s low historical
illustrate the development gaps that need to be addressed
starting point. Massive institutional development and
to break the cycle of violence and underdevelopment.
capacity mobilization in key technical areas, combined
The last column shows the estimated annual change
with a concerted effort to reduce conflict and insecurity,
required for the ARMM to reach the current national
will serve to accelerate the process.
averages by 2022.
While the CAB is a significant step in addressing the
It may take more than a generation (30 to 40 years)
vertical conflict between the Central Government and the
of sustained investment from both government and
MILF, the Bangsamoro must address horizontal conflict,
Table 2: Selected Indicators of Development Gaps
Indicators
ARMM
Mindanao
Philippines
Measure of Gap: Annual
change to achieve 2013
national average by 2022
GDP per capita, PHP (2013)
- in current prices
- in constant prices
29,608
14,565
79,902
46,050
117,603
68,897
21.4%
(in constant prices)
Poverty Incidence (%, 2012)
55.8
39.1
25.2
- 74,167 people
Net Enrollment
(%, SY 2012–13)
- primary
- secondary
72.5
26.1
-
95.2
64.6
+ 33,098 students
+ 22,051 students
Access to electricity
(% HH, 2012)
58.1
81.2
88.8
+ 24,873 households
Access to safe water source
(% HH, 2012)
36.6
73.3
79.9
+ 35,081 households
Access to sanitary toilets
(% HH, 2012)
22.5
83.6
87.2
+ 52,420 households
Seal of Good Housekeeping
(% municipalities, 2013)
6.6
59.7
76.6
+ 8 municipalities
43
(12.3 / million
population)
3
(0.13 / million
population)
86
(0.91 / million
population)
- 5 groups
Source: PSA-Regional Income
Accounts
Source: PSA
Source: ARMM RDP
Source: PSA-FIES
Source: PSA-FIES
Source: PSA-FIES
Source: DILG
Private Armed Groups
(number & per million
population, 2012)
Source: PNP
Note: “HH” refers to households.
23
including rido and other forms of inter-communal and
various types of orchard cultivation. Its sea and freshwater
inter-elite violence, which continue to be prevalent in the
resources contribute around 18% to the national fish catch.
region and are a significant impediment to growth.
It also boasts mineral and non-mineral resources, though
their financial and economic viability remains to be fully
In
the
current
environment
of
insecurity
and
determined.
underdevelopment, investments in the region should
be based on a complete understanding of the complex
The Bangsamoro has huge human resource potential,
security, justice, and economic drivers of conflict in
given its young labor force. Population projections
the Bangsamoro. Throughout the transition from the
indicate that the working-age population will account for
ARMM to the Bangsamoro Government, responses must
72% of the population in 2040—from 63% in 2010 (see
be tailored to the specific geographical and cultural
Figure 4)—holding out the prospect of a demographic
needs and sources of dissatisfaction in Bangsamoro
dividend. Reconstituting, developing, and retaining the
communities, while addressing the needs of the
region’s human capital and equipping it with the necessary
normalization process and the CAB.40
education, skills, and modern work ethic is key to the
development process. The untapped potential of women’s
D. Development Opportunities
participation in economic activity is bound to be a source
Despite these huge challenges, a number of factors
can be leveraged to support the development of the
Bangsamoro.
of future economic growth. The region’s competitive labor
market and low food costs due to the abundant supply of
agricultural products are also promising starting points for
the Bangsamoro area.
D.1. Natural and Human Resource Base
The Bangsamoro enjoys a natural advantage in the form
of vast land areas that are relatively undeveloped. There
are underdeveloped and expansive waterways, both
inland and coastal. The region’s rich agricultural lands
are suitable for the production of high-value crops, such
as banana, pineapple, asparagus, oil palm, rubber, and
D.2. Breakthrough in the Peace Process
The March 2014 signing of the CAB after 17 years of
peace negotiations between the GPH and the MILF
represents a historic opportunity to improve security
and development in the present ARMM and the
Philippines as a whole. This, as well as the ongoing
Figure 4: Population Age and Gender Projections (2010 and 2040)
Source: PSA
24
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Tripartite Implementation Review of the 1996 GRP-MNLF
The total amount of donor assistance to conflict-affected
Final Peace Agreement, creates the political environment
areas in Mindanao is difficult to determine because many
for generating investment and improved socioeconomic
donor projects are not exclusive to the ARMM and cover
outcomes. While there are no immediate solutions for the
provinces elsewhere in Mindanao and the rest of the
Bangsamoro’s deep development challenges at present, it
Philippines. However, a conservative estimate from 2001
is hoped that the Bangsamoro Government will meet the
to 2010 puts average annual donor assistance at USD 40
historical Moro aspirations for political, economic, and
million (see Figure 6).
cultural self-determination, while laying the foundation for
stronger institutions and better governance.
Despite these significant financial inflows, development
indicators have not substantially improved, pointing
D.3. Growing Economic and Investment Opportunities
The ARMM has reported incremental gains as shown in an
increase in regional GDP growth from an annual average of
2.5% in 2009–2012 to 3.6% in 2013. Private investments
show signs of improvement, with investments in the region
to the need for a new approach to development in the
Bangsamoro that will unlock the economic potential
of the region and deliver stability and prosperity.
Figure 5: ARMM Budget 2009–2014
jumping from PhP 174.7 million in 2010 to PhP 1.463
billion in 2013, according to the ARMM Regional Board of
Investments.
These improvements must be sustained with systemic
improvements to register tangible impacts on wellbeing, given
the region’s massive development challenges. Specifically,
heavier investment is needed in agriculture and fisheries,
which are the biggest contributors to employment and ARMM
GDP,41 and targeted initiatives are needed to address the
main drivers of violence in the present Bangsamoro area:
corruption, weak governance, clan-based rivalries, private
armies, injustice, and limited economic opportunities for the
youth.
Source: Ateneo School of Government (2014)43
Figure 6: Current Aid Strategy and Practice: A Macro
Perspective (2001–2010)
D.4. Government and International Development
Assistance
During the term of President Aquino, the annual budgetary
allocation to ARMM has more than doubled, from PhP 9.3
billion in 2010 to PhP 19.6 billion in 2014, or from 0.6%
of the national budget to 0.9% (see Figure 5). This does
not include the special development assistance extended
by
national
government
agencies
to
conflict-affected
communities through the PAMANA42 program and the ARMM
Transition Investment Support Program, which together
Source: Adriano and Parks (2013)
amount to around PhP 15 billion for 2011 to 2014.
25
NOTES
33 Balisacan and Pernia (2001) noted that the geographical isolation of a particular area can cause poverty because of the difficulty of linking it to the
market due to the exorbitant cost of providing linking infrastructure.
34 Rodrik (1999).
35 On this, refer to the example cited in de Dios and Dinglasan (2014).
36 Philippine Statistics Authority-Labor Force Survey (July 2013).
37 World Bank (2014).
38 Data based on the National Demographic and Health Survey (2013).
39 Data based on the Food and Nutrition Research Institute National Nutrition Survey (2013).
40 Normalization, as defined in the CAB, is the process through which communities affected by the decades-long armed conflict in Mindanao can
return to a peaceful life and pursue sustainable livelihoods free from fear of violence and crime. It has three components: (a) security arrangements,
including decommissioning of the Bangsamoro Islamic Armed Forces (BIAF), redeployment of AFP units, policing reforms, and disbanding of
private armed groups; (b) socioeconomic development; and (c) transitional justice.
41 ARMM Regional Development Plan Midterm Update 2013–2016.
42 PAMANA stands for Payapa at Masaganang Pamayanan (Peaceful and Resilient Communities), a special development program launched in 2011 by
the Central Government to assist conflict-affected communities nationwide. Coordinated by OPAPP, PAMANA is implemented by 12 agencies as of
2014. These include DILG, DA, DSWD, DAR, DENR, CHED, PhilHealth, NEA, NCIP, DPWH, DND-AFP, and the ARMM Regional Government.
43 “Towards a Transparent and Accountable Formula for the Bangsamoro Block Grant” (2014).
26
Clamor from the Ground
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5
27
5
A. Community Visioning Exercises: Results
and Insights
To ensure that the BDP adequately targets the priority
to the clustering of the report into six broad themes that
needs of its beneficiary communities, a total of ten
44
also partly guide the structure and the content of this Plan:
one-day CVEs were conducted across the proposed
(1) economy and livelihood; (2) social development; (3)
Bangsamoro and expansion areas representing the
environment and natural resources; (4) culture and identity;
ethnic and religious diversity of the stakeholders in the
(5) governance; and (6) security. The key messages from
Bangsamoro. Participants included members of Muslim
each theme are presented below.46
groups (including both MNLF and MILF), settlers,
and also IPs, as represented by formal and informal
community leaders, and organized stakeholder groups,
among others.45 Each CVE workshop was structured
around focus group discussions and meta-analysis against
three broad objectives:
1. Define the needs, identity, and aspiration of the
Bangsamoro for their envisioned society;
2. Determine the problems, sources of dissatisfaction,
and grievances of Bangsamoro communities, their
causes and possible solutions; and
3. Identify priority projects and programs that respond
to the needs and aspirations of Bangsamoro
communities, and address sources of dissatisfaction.
The results of the CVEs show that most sources of
dissatisfaction, aspirations, and priority programs are
common to all areas. They also validate the BDF, as
the needs and priorities articulated in the CVE results
are reflective of it. In turn, the results provide guidance
28
A.1. Economy and Livelihood
As expected, issues related to the Bangsamoro economy
formed a substantial part of the responses from the CVEs.
The Bangsamoro lags significantly behind the rest of
Mindanao and the Philippines in Gross Regional Domestic
Product (GRDP) and poverty levels as identified earlier,
which correlates with the identified major sources of
dissatisfaction.
This translates directly to the vision and aspirations of the
people for a prosperous Bangsamoro with reduced poverty
where a dynamic private sector can provide livelihood
opportunities and help foster sustainable development.
Priority programs to help address the sources of
dissatisfaction and attain the vision range from direct
livelihoods inputs to infrastructure development in support
of livelihoods and specific interventions to help foster a
private sector based on Islamic principle of halal. Table 3
presents the top responses identified in the CVEs.
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Table 3: Economy and Livelihood-Related Concerns, Aspirations, and Priority Programs
Sources of Dissatisfaction
Vision and Aspirations
Priority Programs
Poverty
Prosperity
Economic program and livelihood
assistance
Lack of livelihood opportunities
Employment and livelihood support
Inputs to production (farming, irrigation,
aquaculture)
Poor transportation network
Sustainable development
Farm-to-market and municipal roads
Unreliable power supply
Dynamic private sector
Increased power generation capacity
High price of inputs to production
Economy sensitive to religious
diversity
Access to finance (microfinance, minicoop, Islamic finance)
A.2. Social Development
Social development issues were equally prominent in
IDPs and their lack of secure housing. Of key importance
the responses of participants in the CVEs, reflecting the
to the peacebuilding aspect of the BDP is the prevalence
substantial lag in social service provision and individual
of out-of-school youth (OSY), whose lack of opportunities
development outcomes across the Bangsamoro (see Table
contributes to a disaffected society susceptible to
4). Poor access to health and education facilities drives
nefarious influences, including drugs, gambling and
the vision and aspirations, which also reflects the plight of
violence, teen pregnancy, and early marriage.
Table 4: Social Development-Related Concerns, Aspirations, and Priority Programs
Inadequate access to health services Reliable access to health services
and facilities
and facilities
Priority Programs
Construction, rehabilitation, and
staffing of health centers
Poor provision of education
(including madaris)
Quality educational system reflective School/Madrasah construction and
of religious diversity
teacher training
Lack of housing
Resettlement and safe integrated
return of migrant communities with
reliable housing/shelter
Support for “Balik-Bangsamoro” and
IDPs including housing, nutrition, and
orphan support
Poor sanitation
Potable water and sanitation system
Waste management
Drugs/gambling
Social safety net system
OSY programs/sports centers
29
A.3. Environment and Natural Resources
The CVEs reinforced the importance of environmental
and sustainable management should be streamlined
stewardship across the Bangsamoro (see Table 5).
in connection with the economic development of the
Many of the Bangsamoro, and also IPs, associate their
Bangsamoro. Coupled with this is reliable access to
very existence with their natural resources. Therefore,
personal and communal lands, conflict
in association with the Bangsamoro people’s right
continues to be a major issue across Bangsamoro.
to
self-determination,
environmental
over which
restoration,
Table 5: Environment and Natural Resource-Related Concerns, Aspirations, and Priority Programs
Priority Programs
Environmental degradation
Balanced ecology and sustainable
environmental stewardship
Reforestation/Forestland management
and protection
Illegal logging/mining
Strong regulation of mining industry
and enforce forestry laws
Conflict-sensitive assessment of
mineral potential in Bangsamoro
Land conflict
Land conflict resolution
Land conflict management system
Pollution
Realized returns of environmental
exploitation to communities
Enforcement of environmental policy
Frequent environmental disasters
Reduced environmental disaster
susceptibility
Disaster Risk Reduction and
Management programs (flood
protection)
A.4. Culture and Identity
As with the environment, communities understand
part of a peacebuilding effort, supporting the recognition
the CAB as an expression of their right to self-
and sharing of the various religious and cultural traditions
determination. Related to that is the equal expression of
of the Bangsamoro people can help foster social cohesion
the multicultural societal fabric of the Bangsamoro. As
(see Table 6).
Table 6: Culture and Identity-Related Concerns, Aspirations, and Priority Programs
30
Priority Programs
Lack of respect for ethnic/religious
traditions
Ethnic and interfaith understanding
Cultural preservation programs
(museums, memorials, parks)
Minimal access to Islamic justice,
finance, health, and education
facilities
Access to culture-specific social,
economic, and governance systems
Construction of culture-specific
facilities (prayer rooms, traditional
birthing facilities, cemeteries)
Disregard of traditional cultures by
the youth
Pride in multi-ethnic background of
Bangsamoro
Peacebuilding and cultural education
program
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A.5. Governance
Transitioning from the ARG structure to the Bangsamoro
particularly corruption—will be a priority for the new
Government with a parliamentary form, along with the
government (see Table 7). Building a new government
associated human resource capacity development, will
with institutions able to provide citizen security, justice,
require substantial effort. At the same time, addressing
and job opportunity will have one of the most significant
the
impacts in breaking the cycle of conflict.
governance
issues
identified
in
the
CVEs—
Table 7: Governance-Related Concerns, Aspirations, and Priority Programs
Priority Programs
Corruption/lack of transparency
Good governance
Values Transformation
Inequitable implementation of laws/
distribution of services
Participatory/representative
government
Transparency and accountability
measures in budget utilization
Nepotism/political dynasty/electoral
fraud
Progressive/fair community
Electoral reform
Injustice/weak judiciary
Justice and human rights (including
Shari’ah)
Implementation of laws
Discrimination/tribalism
Good inter-ethnic relations
Government accountability programs
Limited Shari’ah
Shari’ah Justice System
Implementation of Shari’ah
A.6. Security
As a socioeconomic development plan, it is difficult for
identified by the CVEs (see Table 8). These should,
the BDP to address security issues directly. However,
therefore, be addressed in parallel by the relevant
the protracted history of violence and conflict plays an
institutions to create an enabling environment where
important part in shaping the views of the Bangsamoro
socioeconomic interventions can help foster stability and
people. Hence, security was one of the main themes
prosperity.
Table 8: Security-Related Concerns, Aspirations, and Priority Programs
Priority Programs
Armed conflict/militarization
Peace and stability
Police reform/law enforcement
promotion/demilitarization
Rido
Peaceful community environment
Reconciliation and unification
Crime (kidnapping, rape, human
trafficking)
Strong enforcement of the law
Moral recovery and police operation
enhancement
Private armies
Strong and equitable law
enforcement
Disbandment of private armies
Insecurity/lack of law enforcement
Strong police visibility
Strict enforcement of laws
B. Cross-Validation of Consolidated Outputs
Though representative of the geographical and ethnic
CVE results were cross-validated and compared with
diversity of the Bangsamoro, the CVE process, in the
parallel and past processes to ensure they were aligned
limited time available, covered only a sample of the
with the views expressed by a broader constituency of
proposed
stakeholders and potential beneficiaries of the BDP.
territory
and
population.
However,
the
31
B.1. Community Consultations on the Bangsamoro
Basic Law (BBL)
B.2. Alignment with Previous Regional Analysis of
Development Priorities
The BTC, in line with its mandate to draft an inclusive
Several Official Development Assistance (ODA) partners
BBL, conducted an extensive series of community
have conducted detailed analyses of the needs and
consultations.
the
priorities of the Bangsamoro people based on community
Mindanao Civil Society Organizations Platform for
consultations across the ARMM and in potential expansion
Peace (MCSOPP), it held more than 120 community
areas. Through a desk review, BDP confirmed the
consultation sessions across the potential core territory
close alignment of the aspirations, needs, and priorities
and expansion areas.
identified by the CVEs with those described in previous
Through
a
partnership
with
studies47 in Table 9.
In drafting the BDP, the BDA coordinated with MCSOPP
to draw on data gathered in the consultations. While the
The results of these studies provide a regular polling
consultations on the BBL focused primarily on political,
of the issues, aspirations, and priorities of Bangsamoro
legal, and institutional concerns, the issues identified
communities over the past decade of neglect and reinforce
by the population through the MCSOPP process, and
the continued underdevelopment experienced in the
the suggested remedies, closely match those of the CVE
Bangsamoro. The alignment of the results of the MCSOPP-
exercise. These include the major themes of security,
led consultations on the BBL with earlier socioeconomic
governance, social services, livelihood, and environment.
assessments and development plans, as well as the CVE
An overview consolidation of the CVE, CV, and MCSOPP
results, confirms that the CVEs provide a sound basis to
outputs is in Annex D (Clamor from the Ground).
guide the priority programs of the BDP.
Table 9: Top Community Priorities Based on Previous Needs Assessments
Priority 1
Priority 2
Priority 3
JNA (2005)
Livelihood/income above
subsistence
Water and sanitation
Durable housing/protection from
natural disaster
JICA SERD-CAAM (2009)
Livelihood and economic
infrastructure
Reliable water supply
Access to health and education
WB and WFP (2010)
Money
Jobs
Food
MTF PPA 3 Assessment (2014)
Livelihood and employment
Capital for businesses
Farm inputs, implements, and
postharvest facilities
ARMM Social Fund Baseline
Survey (2014)
Money
Basic needs
Food
NOTES
44 See note 32 in Chapter 3, page 16 for the complete listing of the Community Visioning Exercises in selected Bangsamoro areas.
45 Refer to Annex D (Clamor from the Ground) for a full description of the CVE methodology and results.
46 The list in the matrix table is not meant to have correspondence from sources of dissatisfaction, vision, and aspirations to that of the priority
programs. The table merely enumerates the responses of communities consulted.
47 These are the World Food Programme and World Bank (2010), Japan International Cooperation Agency (2009), and World Bank (2003 and 2005).
32
Strategy and Recommendations
CH A PT ER
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6
33
6
A. Overall Goal of the Bangsamoro
Development Plan
The immediate objective of the BDP is to provide an
citizen security, justice and the rule of law. In shifting the
immediate short- and medium-term vision and strategy
economy toward high value production that improves
for the recovery and development of the Bangsamoro
overall welfare, promoting inclusive and sustainable
based on its unique needs, anchored in justice and
growth, ensuring a proper and more transparent and
building a peaceful and prosperous society emerging
accountable distribution of public funds, and establishing
from long years of conflict. The BDP will build the
a peaceful and stable society, the BDP will help the
foundations of a functioning “just economy” that will
Bangsamoro break the vicious cycle of injustice, insecurity,
strengthen institutions and promote greater access to
and underdevelopment, fostering a virtuous cycle where
social services, jobs and economic opportunities, and
sustained poverty reduction can take hold (see Figure 7).
Figure 7: Transforming a Vicious Cycle to a Virtuous Cycle
Source: BDP-CPT
34
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B. Strategic Interventions
C. Priorities
The BDP must address these challenges through an integrated
Table 10 shows the sequencing of projects/activities
approach of transforming the institutions of the state and
envisaged during the transition period of Phase I and into
restoring confidence among citizens to build a society that is
the Bangsamoro Government in Phase II. Further details
resilient to external stresses.
of the recommended list of projects under the various
sectoral concerns are discussed in the next chapter. As
However, with limited resources, priority socioeconomic
a general principle, priority programs and projects are
interventions must be tailored to the local environment and
selected on the basis of their ability to restore confidence
focused on areas most prone to social exclusion, poverty, and
in the peace process and build “inclusive enough
violence.
coalitions” to support reform.
1. Investments for Social Justice. Increasing access to basic
Programs that generate jobs and improve the quality of
services and employment and livelihood opportunities
life will be a top priority. Those that open up access to
are necessary to promote social justice. Where poverty
culturally important initiatives, such as Islamic financing,
incidence is low but the number of poor people is high
halal industry development, support for madaris, and
(e.g., in densely populated urbanized communities),
cultural activities to record and celebrate the rich history
programs must be tailored to target those most in need.
of the Bangsamoro people will also be given priority in
Where poverty incidence is high but the number of poor
the initial period.
people is low (e.g., in rural areas), programs must benefit
the whole community.
Finally, the Bangsamoro will embark on programs
that will put the region on track to build legitimate
2. Support to Economic Growth and Production. Where
institutions—those
with
technical
capacity
and
there is potential for improving productivity or expanding
accountability—that will sustain the gains of the FAB and
capacity, particularly in small-scale enterprise farming
CAB.
and fishing, programs must open up opportunities for
growth.
3. Support
to
Areas
Vulnerable
to
Conflict
and
Environmental Shocks. In areas prone to conflict or
environmental shocks, or both, programs must address
past or current injustice while building a socially
cohesive
resilient
community.
In
particular,
early
recovery and humanitarian support is essential.
D. Potential Impacts
The reduction of violence in ARMM in recent years,
combined
with
regional
governance
reforms
and
increased investment from the Central Government,
development partners, and the private sector, resulted in
economic growth of 3.6% in 2013. During the transition
to the Bangsamoro Government, the BDP must, at a
minimum, be able to preserve, sustain, and improve
these gains. But higher economic growth is necessary to
To maximize the benefits, build synergies across the region,
catch up with the rest of the nation.
and foster a strong common growth objective, interventions
will further be designed to ensure points of geographic
Central Government spending during the transition
convergence across sectoral interventions. With a strong
period (2015 to mid-2016) will be a catalyst for growth.
complementary institutional reform and strengthening program,
Targeted spending toward activities and programs that
the BDP will help lift the Bangsamoro to higher sustained
accrue to the local economy, particularly in terms of
growth in the medium and the long term.
inducing local employment, would imply additional
35
Table 10: Sequencing of Recommended Projects/Activities for Phases I and II of the Transition Period
Theme
36
Phase I
Phase II
Economy and Livelihood
• Provide basic agricultural assistance to farmers and
fishers, including women, to ensure food security
• Provide financial support to develop small-scale
agricultural and fishery industries
• Develop organic farming industry
• Conduct analytical and feasibility studies to promote
agribusiness investments, and studies to create
integrated development zones
• Develop Polloc Port and other export processing zones
as manufacturing and trading hubs
• Promote Bangsamoro as a regional trade partner
• Develop economic policies
• Promote and establish Islamic microfinance institutions
• Accelerate provision of agricultural services and
goods to farmers and fishers
• Continue development of organic farming
industry
• Promote growth of the halal food
industry
• Strengthen Islamic financial institutions
• Implement recommendations of
analytical/feasibility studies
Infrastructure
• Provide infrastructure projects along key value-chains
to improve economic growth and increase productivity,
improve delivery of basic education, and health services,
etc.
• Provide key energy projects
• Conduct feasibility and detailed engineering studies of
strategic infrastructure projects
• Complete key infrastructure projects started in
Phase I
• Implement infrastructure projects with
completed feasibility and detailed engineering
studies
Social Services
• Write Bangsamoro history textbooks (traditions, culture,
governance, and values transformation)
• Strengthen provision of basic health services
(immunization, nutrition, reproductive healthcare, mobile
clinics, etc.) and medical missions
• Improve basic education (madrasah, adult education, IP
education, OSY programs, scholarships) and technical
vocational education
• Continue/intensify CCT and CDD programs
• Establish social safety nets and protection mechanisms
for the most vulnerable groups
• Conduct analytical studies in support of long-term
improvement of social service delivery
• The institutionalization of formal and informal peace
education-peacebuilding strategy
• Develop curriculum (including the integration of
Bangsamoro history for elementary and secondary
levels)
• Conduct propagation (Da’wah) on Bangsamoro
values formation
• Accelerate provision of basic education, health
services, and sanitation including reproductive
health
• Strengthen and sustain social safety nets and
protection mechanisms established for vulnerable
groups
• Implement recommendations to improve provision
of basic education, health services, and sanitation
• Establish centers for women
• Implement recommendations of analytical/
feasibility studies
Environment and Natural
Resources
• Conduct analytical and feasibility studies to establish
Shari’ah-compliant insurance system
• Implement sustainable forest management and
reforestation, reef and mangrove rehabilitation projects
in selected sites, recruit forest and sea guards, etc.
• Conduct capacity-building training programs on DRRM
in selected communities
• Accelerate implementation of activities on
conservation and rehabilitation
• Full mobilization and equipping of forest and
sea guards
• Implement institutional arrangements
and measures critical for a successful DRRM
response in the selected communities
Culture and Identity
• Construct public museums, libraries, historical markers,
and establishment of Bangsamoro public cemeteries
(maqaabir al-‘aam)
• Establish Bangsamoro language, orthography, cultural
and Da’wah centers
• Provide financing for youth and interfaith activities, and
grants for textbook development to promote a shared
understanding of the Bangsamoro struggle
• Promote culture-sensitive and gender-responsive health
approaches
• Promote tourism development with cultural identity
• Attain full operation of public museums, libraries,
language/cultural centers, and other programs and
projects started in Phase I
• Continue support for youth leadership trainings,
interfaith activities and similar peace efforts
• Strengthen culturally appropriate health systems
and approaches
• Establish cultural centers for women
Theme
Governance, Justice, and
Security
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6
Phase I
Phase II
• Develop a Results-based Monitoring and Evaluation
(RbM&E) system
• Establish technical assistance facilities for the
Bangsamoro, capacity-building of Bangsamoro
Government senior and mid-level officials of BTA
transition team
• Establish satellite offices of key national and regional
government agencies in the island provinces
• Implement CSO capacity-building programs on
monitoring service delivery in the Bangsamoro,
Bangsamoro Open Data Portal, regular polling on
justice, security and jobs
• Establish judicial capacity-building program for judges
and lawyers, increase access to legal aid for the poor
• Strengthen mediation and reconciliation capacity of
community level justice systems (especially on land
conflict and rido)
• Conduct analytical studies to improve good
governance, justice delivery, and security
• Institute and implement RbM&E into the
government system
• Continue implementation of capacity-building
programs for the Bangsamoro Government’s
senior and mid-level officials
• Operational national and regional satellite
offices
• Implement findings and recommendations of
analytical and feasibility studies undertaken in
Phase I
concession that could improve rapid national economic
implementation arrangements are in place, and therefore
growth.
fund-releases and implementation can proceed without
delay.
Proposed programs during the transition are projected to
reach PhP 225 billion. Around PhP 116 billion is already
Figure 8 presents the best-case (high) scenario and
covered by planned activities of various government
alternative scenarios (low and medium) using different
agencies for the period from 2014 to 2016. The financing
levels of utilization: 19% for the low scenario and 38%
gap of PhP 109 billion corresponds to proposed projects
for the medium scenario. Projected growth under the
that are not included in programmed budget of the
low scenario is 4.1% and 5.5% in 2015 and 2016,
government for 2014 to 2016. This allotment of funds for
respectively; and under the medium scenario is 6.5% to
various programs will have significant impact on economic
8.7%.
growth.
Figure 8: GRDP Growth Scenarios in Bangsamoro (2011–2016)
If inflation (which averaged around 6.5% between 2007
and 2013) remains stable, economic growth is projected
to reach as high as 9.7% in 2015 and 12.8% in 2016.
This is far above the projected growth at the baseline (i.e.,
following historical trends) which is at 1.9% in 2015 and
2.4% in 2016. This best-case scenario, however, assumes
a high absorptive capacity and at least a 63% utilization
rate of funds during the transition.
In addition, this assumes that detailed project plans
are in place, projects have been approved in principle,
contracting
out
of
projects
proceeds
smoothly,
Source: NEDA and BDP-CPT estimate
37
The sources of growth during the transition will rely
55.8% in 2012. This would translate to 300,000 people
heavily on government spending, which cannot be
rising from poverty.
sustained in the medium term. Instead, the gains from
improved agriculture practices, infrastructure, and
High priority placed on wide delivery of basic social
public service should prompt the private sector to
services is expected to improve people’s capabilities and
participate more vigorously in the regional economy.
household welfare. An examination of the post-conflict
Building a “just economy” in the Bangsamoro through
situation reveals that the most important development
the targeted interventions identified in this plan will
constraint specific to the region is the level of its human
deliver the necessary conditions for the Bangsamoro to
resources and human capital. This is borne out, among
move to a higher growth path similar to that observed
others, by the extraordinarily low levels of education and
in Mindanao and the rest of the country in recent years.
health and other human-development indicators.
An average annual growth rate of 6% to 8% in 2017
to 2022 would help significantly in lifting communities
Table 11 presents the targeted improvements on selected
out of poverty. Sustained economic growth could
human development indicators by the end of the transition
reduce poverty incidence to 40% to 42% in 2022 from
and the medium term.
Table 11: Targets on Human Capital and Household Welfare
National
(baseline)
ARMM
(baseline)
Transition
(end 2016)
Medium Term
(end 2022)
Participation rate in elementary
school
95.2%
(2012 and 2013)
70.4%
(2013 and 2014)
75 to 80%
80 to 85%
Participation rate in high school
64.6%
(2012-2013)
26.1%
(2012-2013)
35 to 40%
55 to 60%
17%
(2012)
23%
(2012)
18 to 20%
15 to 17%
Adults with at least elementary
education
83.4% (2010)
54%
(2010)
56 to 58%
72 to 74%
Households with access to safe
water
79.9% (2012)
36.6%
(2012)
50 to 60%
60 to 70%
Households with access to sanitary
toilets
87.2% (2012)
22.5%
(2012)
30 to 40%
50 to 60%
Immunized children of age at 1 year
69%
(2013)
29%
(2013)
40 to 45%
60 to 70%
63.0% (2013)
44.2%
(2013)
50 to 55%
60 to 70%
88.8%
(2012)
58.1%
(FIES 2012)
60 to 65%
70 to 75%
Inactive youth (between 15 and 25
years old, not in school or labor
force)
Population with health insurance
coverage
Households with access to
electricity
Source: NEDA and BDP-CPT estimate, using data from DepEd-ARMM (EBEIS) and PSA-LFS (2013), CPH (2010), and NDHS (2013)
38
CH A PT ER
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39
7
The protracted conflict in the Bangsamoro, combined
3.1% (1996–2008) and 2.5% (2009–2012)49 and a
with its accumulated neglect and its geographical
population growing annually at approximately 2.3%
remoteness,
of
(2010), the regional economy can barely keep up with
insecurity, poverty, marginalization and deprivation,
the expanding needs of its residents. As a result, the
and underdevelopment (see Chapter 4). This chapter
ARMM had the lowest regional per capita output in the
discusses the state of the economy and livelihood
Philippines in 2013—PhP 29,608 per person, barely a
opportunities in the Bangsamoro, using data from the
quarter of the national average and lower in real terms
ARMM as proxy. It proposes a strategic approach to
than per capita output in 2010.
has
resulted
in
a
vicious
cycle
development in the Bangsamoro based on leveraging
its agricultural potential to spur investment and move
Less evident in the official data is an active and far-
production up the value-chain. Section 1 assesses
reaching informal economy, which provides meager
the performance of the Bangsamoro economy across
but critical livelihood and employment opportunities to
its sectoral composition and describes the impact on
marginalized and vulnerable communities operating in a
labor force participation, poverty incidence, and food
highly imperfect and disconnected market. Data suggest
insecurity. Section 2 provides a strategic framework for
that close to 60% of workers in Mindanao are involved
improving
performance and developing
in the informal sector, with the share in the ARMM
livelihood opportunities for sustainable growth in the
being considerably higher. This informal economy is an
Bangsamoro. Section 3 outlines a program for economy
essential survival tool for poor communities, although
and livelihood in the transition.
it also includes a “shadow economy” that operates
economic
A. Context: Economic Performance, Poverty,
and Livelihood in the Bangsamoro
A.1. Overall Economic Performance
Despite
recent
improvements,
economic
output,
productivity, and incomes in ARMM, it continues to
lag significantly behind those of the rest of Mindanao
and the Philippines. Though ARMM represents 3.5%
of the Philippine population,48 it contributed only
1% of national Gross Domestic Product (GDP) in
2012. With an average annual growth in GRDP of
40
within it that engages in illicit transactions of weapons,
drugs, land, and credit, which are significant drivers of
violence.50
Recent governance and policy reforms have nonetheless
led to an increase in regional output growth, from an
average of 2.9% in the period from 2009 to 2012, to
3.6% in 2013. This opportune starting point must be
built upon through well-selected interventions to create
momentum for sustainable growth and development in
the Bangsamoro.
A.2. Composition of the ARMM Economy
AFF contributed nearly two-thirds of GRDP (63.5%) in
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Figure 9: Sectoral Composition of ARMM GRDP: Four-Year
Average (2009–2012)
2009–2012. Services accounted for 31.4% of output and
manufacturing contributed the remaining 5.1% (see Figure
9).
Though AFF is the dominant sector in the ARMM economy,
its performance has been highly uneven and, on average,
has registered a decline in recent years, including a 1.1%
contraction in 2012 (see Figure 10). Further, as a result of
low investment, the agricultural sector specializes in lowvalue crops, such as cassava, corn, coconut and palay (see
Figure 11). Similarly, though the ARMM benefits from
rich coastal and inland waters and contributes 18% of the
national fish catch, the incomes of its fisherfolk remain low
because of limited processing facilities.
Source: PSA-Regional Income Accounts
Figure 10: Agriculture, Fishery and Forestry Sector Growth
(1996–2012)
The ARMM’s share in the country’s total production is
substantial in cassava (45.76%), coffee (12.2%), corn
(10.96%), rubber (9.2%), coconut (8.3%), and abaca
(7.3%) (see Table 12). However, it is only in cassava (10.7
mt/per ha), coffee (0.8 mt/per ha), sugarcane (59.3 mt/per
ha), and abaca (0.6 mt/per ha) where productivity is higher
than the national average, while productivity rates in corn
(2.6 mt/per ha), coconut (4.1 mt/per ha) and mango (0.6
mt/per ha) are close to the national average. Considering
that productivity in agricultural crops in the Philippines
Note: Statistical series break beginning 2009 and also at 1985 prices
(1996 to 2009 series) and 2000 prices (2009 to 2012 series).
Source: PSA-Regional Income Accounts
are much lower than in neighboring ASEAN countries,51
improving agricultural productivity in the ARMM would
logically serve as a key objective in improving small
Figure 11: Nominal Value of Production of Top 10 Major Crops in
the ARMM: Five-Year Average (2008–2012)
farmers’ income and welfare.
The share of the services sector to GRDP has grown in
recent years, from 31.4% in 2009 to 32.8% in 2012.
However, most service-sector jobs are government jobs,
and those in other sectors tend to be low-productivity
and low-paying jobs. The tourism sector, which has the
potential to provide significantly higher revenues to the
region and offer higher compensation for workers, is
constrained by security concerns and poor infrastructure
despite the natural beauty and amenities that the region
Source: DA-BAS
can offer.
41
Table 12: Average Annual Production of Key Crops in ‘000 mt (2010–2013)
Rice
Philippines
17,232.1
Corn
Coconut Coffee Cassava Banana Mango Sugarcane Rubber Abaca
7,033.0 15,492.6
87.7
2,224.0
9,034.5
31.2
24,321.6
427.2
67.1
Region IX
608.2
203.6
1,686.2
1.0
35.9
250.4
0.2
0.3
186.1
0.5
Region X
627.4
1,194.8
1,784.0
5.6
545.7
1,720.7
0.4
3,740.4
10.7
2.0
Region XI
422.4
204.8
2,564.8
18.6
14.9
3,652.3
0.9
420.8
14.1
8.9
Region XII
1,262.0
1,185.5
942.5
28.0
53.9
1,119.9
0.5
741.1
162.9
0.9
Region XIII
469.0
91.8
892.4
1.9
25.6
210.4
0.1
0.0
14.1
6.0
ARMM
588.8
771.1
1,290.6
10.7
1,017.6
428.3
2.7
72.5
39.2
4.9
% share of ARMM in
Philippines
3.42%
10.96%
8.33%
12.2%
45.76%
4.74%
8.7%
0.3%
9.2%
7.3%
Source: DA-BAS
Manufacturing comprises only 5.1% of the regional
economy and is dominated by micro- and small-scale
industries.52 The uncertainty fueled by the security
situation discourages entrepreneurs from investing
in the region, and keeps their ventures small so these
can easily be scaled down in case of urgent situations.
As part of the residents’ coping mechanisms, most
of these microenterprises contribute little, if any, to
the government’s revenues53 or are part of the illegal
“shadow economy.”
generate a significant number of jobs have been
successful and rely heavily on localized security
The
development
of
an
industrial
base is further limited by unreliable power supply,
unavailability of skilled labor, lack of access to
finance, and some cultural factors (e.g., enforcement of
industrial discipline among the workers, which presents
a challenge because of existing social hierarchies).
Map 3 illustrates existing business establishments
and financial services per municipality in Mindanao.
Due to the limiting factors described above, these
establishments and services are sparse inside the
proposed Bangsamoro core territory.
42
Limited access to capital and credit is one of the
binding constraints to higher productivity and growth
in the ARMM. Total deposits and loans in the region are
negligible (see Figures 12 and 13). Inherent market failures
in rural areas, combined with the conflict risks, have made
financial inclusion and intermediation almost nonexistent.
Only 7% of municipalities and cities in the ARMM are
serviced by banks, compared with 48% and 63% in
Mindanao and the Philippines, respectively.
Very few medium- and large-scale enterprises that
agreements.
A.3. Finance and Credit
Furthermore, access to Islamic finance and credit in the
region is very limited. The Al-Amanah Islamic Investment
Bank of the Philippines, the only bank in the Philippines
legally authorized to engage in Islamic financing and
credit, has a heavy debt burden and limited reach at the
community level. Operations of microfinance institutions
are also limited. A survey on the credit sources of residents
in the conflict areas reports that the vast majority of
respondents rely on family networks as their main source
of credit (see Table 13).
A.4. Employment and Labor Force Participation
The
ARMM’s
deceptively
low
unemployment
and
underemployment rates, as noted earlier, conceal the
region’s real problem, which is labor underutilization and
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Map 3: Number of Establishments by Municipality (2012) and Municipalities Served by Banks (2013)
Source: DTI (2012) and BSP (2014)
the poor being trapped in low-productivity, low-income
age residents outside the labor force. Over a quarter of
jobs. Labor force participation in the ARMM is only
employed individuals are unpaid—typically working for
56.0% (2013), which translates to one million working-
family-owned businesses.
Figure 12: Total Bank Deposits in ARMM (as of end Dec 2013)
Figure 13: Total Bank Loans in ARMM (as of end Dec 2013)
Source: BSP
43
Table 13: Sources of Credit in the Bangsamoro (2011)
Sources of Credit
Lanao del Sur
Maguindanao
Cotabato City
Tawi-Tawi
Basilan
No access
1%
4%
-
32%
19%
Relatives/friends
97%
84%
81%
48%
79%
-
-
-
-
-
1%
1%
13%
23%
-
-
1%
9%
-
-
1%
1%
15%
-
-
-
-
2%
-
1%
Stores
5%
14%
12%
-
-
Others
2%
2%
2%
11%
2%
Charities/NGOs
Local lenders/pawnshops
Banks
Cooperatives
Local Government Units
(LGUs)
Source: WFP and WB (2011)
Women and youth make up a disproportionate share of
poverty and disaffection, which potentially can lead them
the potential but inactive workforce. Women account
to violence and undermine social cohesion.54
for 75% of the population outside the labor force. Even
allowing for women’s typically low participation in
A.5. Poverty Incidence
the labor force due to housework and childcare, the
As a result of limited employment opportunities, low
participation rate in the ARMM is only 32%, compared
investment, and lagging growth, the ARMM has the
with the national and Mindanao averages of 50% and
highest incidence of poverty in the Philippines, more
51%, respectively.
than twice the national average (see Figure 14). Three of
the ARMM provinces are among the 20 poorest provinces
The same factors explain the low unemployment rates
in the country, with Lanao del Sur registering the highest
among the youth. Youth labor force participation is only
poverty incidence at 73.8 in 2012.55
35.1% and almost a quarter of those aged between 15 to
24 are neither in school nor in the workforce (see Table
Poverty is also closely linked to displacement, which is
14). Lacking the skills to productively participate in the
one of the defining characteristics of conflict in Mindanao.
labor market, the out-of-school youth are at high risk of
Even minor spikes in violence can lead to large-scale
Table 14: Youth Unemployment and Labor Force Participation (2013)
Age
Labor Force Participation Rate
ARMM
Rest of Mindanao
Philippines
ARMM
Rest of Mindanao
Philippines
15 to 24
(UN definition)
8.6
10.6
16.2
35.1
49.0
46.1
18 to 30
(Official definition)
7.0
9.8
13.7
50.6
64.3
64.3
15 to 40
(Bangsamoro definition)
4.9
6.9
9.8
51.2
62.8
61.6
Source: PSA-LFS (2013)
44
Unemployment Rate
population displacement. Between 2000 to 2012, over
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Figure 14: Poverty Incidence in ARMM (2006–2012)
40% of families in Central Mindanao were displaced at
least once, with a high of 82% in Maguindanao. Displaced
populations invariably fare much worse than people who
have never been displaced, according to such indicators
as food consumption, access to basic services, and trust
in government and other ethnic/religious groups.56 Map
4 illustrates the number of households that have been
displaced due to armed conflict, infrastructure development,
or natural disasters.
Even returned households are almost as vulnerable as those
Source: PSA (using FIES data)
still displaced, since lengthy displacement results in the loss
of one or more harvests, absence from school, and in some
Poverty and low agricultural productivity contribute to
cases, forced sale of capital assets in order to meet basic
food insecurity and malnutrition. An assessment of food
needs. Displacement thus drives the transmission of poverty
security in the five provinces of ARMM57 showed that
across generations.
900,000 households, or 46% of the total, had a poor or
Map 4: Displaced Households in the Bangsamoro and Surrounding Areas (2009)
Note: NHTS data counts households where a family member has been displaced in the last 12 months prior to the survey.
Source: DSWD-NHTS (2009)
45
borderline consumption score (i.e., 20% poor and 40%
Meanwhile, there is significant human and financial
borderline consumption). Lanao del Norte, Lanao del
capacity vested in individuals residing outside the
Sur, and Maguindanao are particularly badly affected
Bangsamoro, both in the Philippines and abroad. Offering
by food insecurity, with IDPs being the worst affected,
incentives for increased banking and investment in the
followed by returned and resettled populations.
Bangsamoro, including the transmission of remittances,
could provide a multiplier effect on the investments
B. Strategic Goals
of
Bangsamoro
Government
and
development
partners. Encouraging young Moro professionals, through
B.1. Jumpstarting the Economy
scholarships and training packages linked to technical
Addressing low-productivity employment, low labor
posts, could fill the immediate capacity requirements
participation, and unemployment and underemployment
to manage the transition to a growing and prospering
rates among the youth and women in the Bangsamoro
Bangsamoro.
shall be a key priority during the transition period.
Stability and normalization cannot be guaranteed as long
as a large pool of potentially productive workers remains
underutilized.
B.2. Unlocking Growth Potentials
B.2.1. Promoting Agricultural Development
The large share that AFF contributes to the regional output
Poverty reduction will remain an elusive goal without
providing productive employment that will yield decent
incomes for the workers. In turn, additional incomes in
the hands of poor households will have a multiplier effect
in the form of generating greater demands for local goods
and services. Rising demand will then jumpstart the local
suggests that unlocking the potential of this sector will be
key to generating sustainable and inclusive growth. In the
transition period, focusing on small- and medium-scale
farmers to increase their productivity, supporting links of
subsistence production of small farmers to livelihood in
the value-chains, and building resilience to climate change
economy to reach higher and sustained levels of growth.
will have an immediate impact across the Bangsamoro,
To attain this goal, the BDP recommends implementation
security and provide employment opportunities. In the
of cash-for-work programs, particularly among the
youth, in the maintenance of public facilities, including
roads, canals, irrigation facilities, school buildings and
premises, health centers and premises. Upscaling the
implementation of the community-driven development
(CDD) approach in delivering basic infrastructure
facilities to the community would immediately provide
hundreds if not thousands of jobs to highly qualified
particularly in poor areas, as this will increase food
medium term, removing structural barriers to investment
in the Bangsamoro region will be essential to sustainable
growth (see Map 5).
This approach is enshrined in the BBL, which commits the
Bangsamoro Government to “advance agriculture as a key
development strategy, promote productivity measures, and
provide support for farmers and fishers, especially small
Bangsamoro youth.
landholders and marginal fishers.”58
Training programs on food processing, cottage industry
The BBL further states that the Bangsamoro Government
and farming/fishing, skills that are demanded by the
market,
would
provide
employment
opportunities
especially for women. Such activities would be viable
if accompanied by a small amount of credit to start the
business venture.
46
the
“shall encourage and support the building up of
entrepreneurial capacity in the Bangsamoro…[and] shall
provide technical and skills training programs, create
livelihood and job opportunities, and allocate equitable
preferential rights to its inhabitants.”59
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Map 5: Agro-Edaphic Maps of the Bangsamoro and Adjacent Areas (as of 2012)
Source: Manila Observatory (2012) and the Philippine Human Development Report 2012/2013
In line with this, the BDP proposes four complementary
strategic growth paths:
B.2.1.1. Harness the Potential of Small Farmers,
Agricultural Workers, and Fishers
The vast majority of workers in the Bangsamoro are
a. Harness
the
potential
of
small
farmers,
small farmers, agricultural workers, and fishers. To attain
agricultural workers and fishers by increasing
food security,60 raise incomes, and meet domestic and
their productivity to attain higher income and
regional demand, the BDP envisions to:
ensure food security.
b. Promote
private
enhancement
of
sector-led
growth
agricultural
through
value-chains,
with particular focus on linking small farmers
a.Increase
the
productivity
of
small
farmers,
agricultural workers, and fishers;
b. Facilitate growth in value of production by
and fishers to food processing and commercial
cultivating
development for export in the medium term.
developing new products, and developing linkages
c. Promote the growth of the halal food industry.
d.Foster sustainable integrated area development
planning.
crops
with
higher
value-added,
to processing facilities; and
c. Increase the sector’s resilience to risks, including
climate change risks.
47
Given that the region is a net importer of food, raising
BDP gives importance to training and seed funding that
farm productivity will serve as one of the key thrusts of
encourage women and post-school-age youth to join the
the Bangsamoro Government to increase income and
labor force within the sector development programs.
attain food security
61
among its constituents. Increasing
farm productivity to bolster the food supply will be an
Increasing value of production by diversifying crops
immediate first step to ensuring better access of the poor to
with higher commercial value, developing new products
food at affordable prices. Food security may be achieved
from agricultural commodities, and developing linkages
in the short term by complementing current production
to processing plants and markets can be facilitated
output with supply from outside sources. On the other
by building a better understanding of the value-chain
hand, food self-sufficiency can be a medium- term goal
approach to agro-industrial development among the
with increased agricultural productivity and better food
government agencies, the private sector, and farming
logistics. Higher incomes for farmers will be achieved
communities. Small farmers and fishers shall be enabled
through diversification into crops and activities with higher
and encouraged to consolidate their production to
value-added.
facilitate profitable opportunities for common services
(such as cold storage, drying and other postharvest
Combined with appropriate information and education
facilities) and access to processing facilities; and
campaigns, this general thrust for productivity can improve
improving the business environment by simplifying labor
the nutritional status especially of children, the youth, and
regulations, facilitating access to finance, and providing
mothers. This can be achieved through (a) agricultural
suitable incentives.
extension services aimed at improving nutrition and
education
of
the
public;
(b)
adopting
sustainable
Improving the sector’s resilience to risk will involve a
agricultural practices; (c) facilitating access to appropriate
much better understanding of the factors impinging on
technology, production inputs and market information; (d)
farmer risks, particularly factors related to climate change,
improved market access through farm-to-market roads and
and the design and deployment of appropriate farm
transport; (d) small-scale harvesting and irrigation facilities;
finance, insurance products, and better crop selection.
and (e) improved access to rural finance.
Vulnerable groups are particularly susceptible to poverty
B.2.1.2. Private Sector-Led Growth: Developing ValueChain and Commercial Production of Crops
and exclusion, and will need to be explicitly targeted
To promote further private sector investment, restoring
across all areas of intervention. Scholarship programs
law and order is of paramount importance. In addition,
would encourage the youth to return or to stay in school.
for agricultural ventures, addressing the widespread land
Livelihood opportunities in infrastructure development
tenure problems in the region is vital if land access to
and maintenance activities could also be reserved for the
potential investors is to be guaranteed. Other elements
out-of-school youth.
that will encourage greater private sector investments
in the Bangsamoro are reliable infrastructure; access
To
provide
longer-term
employment
opportunities
for youth, skills-training programs that correspond to
to finance, including Islamic finance; improving local
governance; and better-trained workers.62
industrial labor requirements would be beneficial, as
48
would agricultural training and provision of inputs.
Land and property rights require special and urgent
Women, whose labor force participation may be
attention. For smallholder farmers, increased land tenure
constrained by household requirements, could contribute
security can enhance productivity, as it encourages them
to household income through food processing, cottage
to invest in their land, and also enables them to access
industries, or operating trading stands in the home. The
financial and property markets. For large-scale investors,
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being able to consolidate land resources, through
a rallying point for mobilizing resources for investment,
contract growing or leasehold agreements, and security
infrastructure support, capacity-building, and introduction
of tenure over the long-term, are essential to investment
of
viability.
agricultural practices. Its impact would cascade all the
better
technologies
for
improved
and
efficient
way down to the community level, involving micro-,
Providing these conditions could generate employment
small-, or medium-scale farming, as well as processing
opportunities for thousands of landless agricultural
activities associated with food crops, livestock and poultry,
workers. The present uncertainty of ownership and
aquaculture/mariculture, fruits, and vegetables.
overlapping ownerships are a significant obstacle to
development and must be addressed. The BBL provides
Targeting both issues of low farm productivity and low
that land management is a concurrent power between
value of farm produce, the
the Bangsamoro Government and Central Government,
food industry could ride on the opportunities offered by
the exercise of which will require coordinated long-term
the burgeoning global halal economy, the comparative
engagement to clarify.
advantage of halal agriculture and food in the Philippines
development of the halal
and in the ASEAN region, and the benefits of a cohesive
Also, the BBL stipulates that
the Bangsamoro
and integrated value-chain. Since the emphasis is on
Government shall institute processes for improved
improving the value-chain and linking the farmers to the
land management. This will be possible with adequate
halal food industry, the benefits of interventions are most
information on the current situation. In the immediate
felt in increasing the value of farm produce.
term, the BDP will support surveying of existing land
titles and claims and an assessment of the existing land
Apart from linking the farmers to the halal food processors
management institutions. In the medium term, priority
and markets, appropriate technologies and knowhow
shall be given to the formulation and passage of a
would be the main intervention in increasing farm yields.
Bangsamoro Land Use Act.
Furthermore, by improving technologies and the value
of the farm produce, farms (and farmers) become more
Promoting the development of value-chains will result
resilient to price and financial risks.
in the creation of new products and encourage the
development of a food processing industry. This will
At the heart of this strategy is intensive promotion and
generate more jobs and provide the impetus for the
development of halal organic farming as a sustainable
growth of the manufacturing sector. The latter will be
source of food that is compliant with the Islamic dietary
based initially on food processing but eventually can
code. Organic farming is a fast-emerging sector in
proceed to light industrial products as the supply of
agriculture, with a niche market of its own in the Philippines
trained workers increases.
and in nearby regional and other international markets. The
63
B.2.1.3. Promote a Robust Halal Food Industry
strategy for the halal food industry is, therefore, an entry
point in resuscitating an ailing agriculture sector, with halal
Successful development of the halal food industry hinges
organic farming at its core.Over and above the steps to
on implementation of a strategy along the lines proposed
be taken to revitalize the agriculture sector in general, the
for the development of the Bangsamoro agriculture
thrust of the actions to get the halal food industry up and
sector. The strategy for the halal food industry is an
running would include the following:
integral part of that strategy.
a.Enacting
and
on
halal
of
policies
and
accreditation
and
Development of the halal food industry could be a
regulatory
flagship economic program. This
certification, labeling, and food safety;
industry provides
laws
strengthening
49
b.Designing
and
implementing an incentives
of development. These can involve physically or culturally
code for halal-compliant ventures, particularly
sensitive areas, including locations where security issues
for smallholders and small- and medium-scale
would preclude private sector interest, at least in the short
enterprises;
term, due to the level of risk involved.
c.Strengthening the institutions responsible for the
promotion and development of the halal industry,
Aside
with particular emphasis on extension and support
plans for areas under this approach will be “complete
services to smallholders and small-scale enterprises
plans” incorporating physical and social infrastructure.
engaged in halal food production;
It is important for these interventions to serve as signals of
from
attention
given
to
productive
activities,
d. Developing and implementing a capacity-building
intent of the Bangsamoro Government to ensure inclusive,
program for extension service providers, trainers,
spatially sensitive, and sustainable development to targeted
and smallholders, and encouraging state universities
underdeveloped communities.
and colleges to engage in research and introduce
new courses to develop the halal industry; and
e.
Developing
and
implementing
a
Determining locations and appropriate types of interventions
sustained
across the Bangsamoro will require significant study and
information and communication program on halal
assessment. In environmentally sensitive river basins where
food.
integrated planning focuses on watershed protection, a
significantly different approach to securing water catchments
More detailed actions will be articulated in a revised and
and ensuring sustainable forest management will be needed
enhanced Regional Halal Food Industry Development
from that to be applied in former MILF camps, which could
Master Plan. This
be redeveloped into integrated agribusiness hubs in peaceful
endeavor
will require substantial
financial resources but identification and validation of
and productive communities.
production zones as embodied in the Halal Industry
Development Framework could catalyze an industry
Regardless of the type of intervention, integrated area
buildup in which infrastructure support, financial
development programs can be significant sources of
resources, capacity-building, and technical support,
employment for displaced populations, returnees, and
would be focused for better utilization.
demobilized forces, with the added benefit of helping foster
social cohesion.
The Bangsamoro Government could encourage the
private sector to take the lead in such an endeavor by
The specific approach of the Bangsamoro—such as location
providing the enabling environment and appropriate
selection criteria, private sector involvement, and transition
incentives and other support programs. In some
plans—will have to be studied carefully to ensure both the
instances, however, public-private sector partnerships
sustainability of investments and the maximization of social
may be the most appropriate route.
and economic benefits. The BDP recommends conducting
a study on promoting climate-resilient agriculture through
B.2.1.4. Fostering Sustainable Integrated Area
Development Planning
Sustainable
50
integrated
area
development
integrated area development planning, and a study on
transforming MILF camps into agribusiness centers.
planning
recognizes that some areas are environmentally fragile
While other locations will require further assessment,
or have special characteristics that require a significant
Polloc Port is being considered in this Plan as a potential
degree of government intervention, or may require the
manufacturing and trade hub that will later distribute other
close consideration of cultural and social dimensions
supportive industries in other areas of the Bangsamoro. It is
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located in a cove perfect for large vessels to berth and to
A comprehensive study needs to be conducted during
load and unload cargo. Its location and size is perfect as
the transition period on how to develop Polloc Port and
a Regional Export Processing Zone. The BDP will support
other ports declared as export processing zones to become
necessary assessments that will lead to the attainment of
the growth hubs for the manufacturing industry in the
this goal for Polloc Port.
Bangsamoro, including the appropriate policy environment
that would need to be adopted. As with export processing
B.2.2. Promoting the Development of the
Manufacturing Sector
Given
the low
labor-force
participation
zones elsewhere, it is critical that an open trading policy
be adopted in these zones to ensure their success.
rate
and
the initially limited labor-absorptive capacity of
the
agricultural sector, measures must be implemented
to promote the rapid growth of the manufacturing
sector in the Bangsamoro, particularly labor-intensive
manufacturing, primarily related to food processing.
The region’s abundant land and labor supply, relatively
low wages, and geographically strategic location are
advantages that will enable the Bangsamoro area to
attract sizeable investments in industry.
For this to happen, the Bangsamoro Government will
need to (a) ensure the security of investors and their
investments, (b) provide the policy environment conducive
for greater private sector participation, (c) upgrade the
skills of the labor force, and (d) address the lingering
energy shortage.
Rapid expansion of the manufacturing sector is unlikely to
be achieved in the short term but will be within reach of
the Bangsamoro in the medium term. Many elements are
already in place, assuming that security is guaranteed.
Natural locations for new manufacturing industries can
B.2.3. Extractive Industries
The Bangsamoro
is
generally
regarded
as
having
significant potential in the extractive industries. Though
more geological
studies need to be conducted, the
potential revenues from a well-managed extractive industry
would contribute considerably to the region’s fiscal
autonomy.
However, extractive industries can take more than a
decade
before
yielding
any
revenue for the state.
To attract investors, the Bangsamoro could generate
geological data for use of potential developers to assess
technical and financial viability. The Bangsamoro must
also be cognizant of the inherent risks of environmental
degradation
and
social
displacement
by
large-scale
of
geological
resource development.
The
BDP
supports
the
development
information-based feasibility and engineering studies,
while
the
institutional
and
capacity
development
requirements of managing and regulating extractive
industries in the Bangsamoro continue to be assessed.
Polloc Port is ideal as a Regional Export Processing Zone.
B.2.4. Developing a Tourism Industry in the
Bangsamoro
Second, the Bangsamoro Government will have authority
The Bangsamoro has some of the most diverse and
under the BBL to pass measures that will facilitate the entry
unique natural resources in the Philippines and a rich
of private sector investors, ranging from giving appropriate
cultural history that can yield significant revenues from
land rights and access arrangements to offering incentives
tourism. The impediments to large-scale development
to potential investors. Third, the export processing zone
of the tourism potential have been the security situation
could be expanded to other viable areas, such as the
and poor infrastructure and connectivity. There are also
Bongao Port in Tawi-Tawi where active trading is already
environmental and cultural conservation concerns (see
taking place with neighboring Sabah Island.
Chapters 10 and 11).
be found in and around the region’s major ports. First,
51
However, the political and social stability resulting from the
order and an improved business and investment climate,
peace agreement makes it opportune for the Bangsamoro
development banks, commercial banks, and rural banks
to lay the groundwork for private-sector development of
will step forward to provide financial support, among
the tourism industry. Areas of particular natural or cultural
others, to enterprises in the informal sector that wish to
significance, such as Central Mindanao and Tawi-Tawi,
move into the formal sector to take advantage of the new
could be targeted with specific normalization interventions
economic environment. Islamic banking and finance
regarding
should be viewed as a system, and thus it is critical that
security
and
governance
to
encourage
investments.
the foundations be set for developing institutions and
products across all these aspects of the sector, including
Conservation and sustainability measures will need to
banking, capital markets, microfinance, and insurance.
be prioritized alongside the improvement of security
conditions. Supportive access infrastructure, improved
This must further be viewed from the national as well as
tourism facilities, competitive prices for tourism amenities
from the Bangsamoro perspective, recognizing the legal
and food,
and capacity-building of key actors (from
mandate of the Bangko Sentral ng Pilipinas (BSP) and
managers to staff) are important requisites for developing the
other Central Government instrumentalities, and taking
sector.
into consideration the wider national market for Islamic
financial products. The banking system’s development
To
realize
the
potential
of
tourism
for
significant
should not be rushed; it should be driven by business and
employment creation, training programs in tourism industry
economic rationales, with market forces and the people’s
skills could be instituted, with particular focus on women
emerging needs being allowed to determine the optimal
and the out-of-school youth. Demobilized MILF forces
mix of products.
could also be trained as guides, considering their extensive
knowledge of the region and its history.
B.2.5. Improved Access to Credit and Strengthened
Islamic Banking and Finance
The legislative base would need to be wide and flexible
enough to enable the market to do its work, recognizing
the rapid evolution of Islamic financial products and their
delivery mechanisms. The BSP is working with the other
At this stage, both conventional and Islamic banking
pertinent agencies to lay the groundwork for the necessary
and finance facilities will inevitably have to coexist in
legislative and institutional agenda. The aim is to provide
the Bangsamoro. An orderly development of both the
the appropriate regulatory framework for licensing and
conventional and Islamic systems, leading to a better spread
supervision of Islamic banking and other Islamic financial
of financial risks over the economy, would include:
instruments in the country, especially in the Bangsamoro.
a. Promoting healthy competition, resulting in increased
market discipline and improved customer service and
Having the legal framework for Islamic banking and
value;
finance at the national level would reduce the need
b. Increasing the deposit base, as products like tabun hajj
for legislative action by the Bangsamoro Government.
(a savings account for the annual pilgrimage to Mecca)
The Bangsamoro Government would need to work with
are introduced; and
the BSP and the Financial Services Forum (FSF) on this
c. Enabling Muslims and non-Muslims alike to choose
legislative and institutional agenda.
the financial tools that are most appropriate for their
needs.
Various
options
are
available
to
the
Bangsamoro
authorities in establishing an Islamic banking presence
52
All facets of the conventional banking system will have
in the region. One is for the Bangsamoro Government
a role to play in the future Bangsamoro. With peace and
to establish its own Islamic bank, which could be a new
CH A PT ER
7
entity or a revived Al-Amanah. If this scenario is chosen, it
Given the dominance of informal activity in the
would be beneficial to encourage private entities to engage
Bangsamoro
also in providing Islamic banking and financial services in
collateral over property and land, Islamic microfinance
the region.
facilities could play a major role in expanding the
and
the
difficulties
associated
with
economic base. However, there is a need for service
Alternatively, conventional banks could be allowed to open
providers with outreach to the rural areas where the
“Islamic windows” in their operations, or even establish
need for support is greatest, and a need for suitably
fully pledged Islamic subsidiaries. Foreign banks may also
designed and affordable instruments tailored to the
want to enter the market, which could be through joint
needs of the Bangsamoro market. In the Philippines,
ventures or technical/management agreements with local
cooperatives and NGOs are likely to be the initial
banks that lack know-how in Islamic banking.
conduits for Islamic microfinance instruments, although
rural banks may also be willing to perform that role.66
Some interest has been expressed by local and foreign
commercial banks to take over the Al-Amanah and use
The Muhammadiyah model of Indonesia is worth
it as springboard for introducing a wider range of Islamic
exploring for its applicability to the Bangsamoro. This
banking and finance instruments.
model also introduces micro-Takaful (micro-insurance) as
protection to reduce risk associated with the possibility of
Another option is encouraging the establishment and
losses. There is certainly a demand for insurance against
growth of Islamic capital markets, which can be achieved
crop failure by farmers in the Bangsamoro, although the
if the Central Government removes discriminatory taxation
necessary premiums may currently be beyond reach.
policy against Islamic financial instruments.
Underpinning Islamic banking and financial instruments
Islamic capital markets probably offer the fastest route for
is the need to ensure that Shari’ah compliance
introducing Islamic banking and financial products into
arrangements are in place. The BSP is exploring
the Bangsamoro. The Bangsamoro Government and local
this matter within the context of its legislative and
government units could consider meeting their “borrowing”
institutional review, and the Bangsamoro Government
needs through the sukuk,
as the drive toward financial
would need to engage with the BSP on this issue. The
integration in the ASEAN region (and Asia) is expected to
best course of action for the Bangsamoro and the
provide a platform for the local development of sukuk,
Philippines would need to be explored and could
given the growing importance of these instruments in
involve adopting interim measures, including tapping
ASEAN countries, particularly Indonesia, Malaysia and
ASEAN expertise.
64
Brunei.
A
communications
strategy,
based
on
careful
Use of sukuk is suited for public-private partnerships (PPP)
socioeconomic research, would be needed to educate
and could form a significant component of the economic
the public on the principles of Islamic banking and
development thrust in the Bangsamoro, particularly as a
finance and on the products that would be available.
means to finance infrastructure in support of critical private-
This strategy would need to address all stakeholders,
sector projects. Major private-sector projects in the region
Muslim and non-Muslim alike. Commercial aspects as
could also be encouraged to use sukuk in financing their
well as the ethical and religious underpinnings would
operations. The financing can be organized onshore or
need to be emphasized.
offshore, and can be arranged without having to establish
an institutional base in the Bangsamoro or even in the
A program is also recommended for developing the
Philippines.
necessary capacity and skills of public institutions—
65
53
national and regional—for overseeing the development
Together with the BIMP-EAGA, the AEI will increase
of Islamic banking and finance. There is a dearth of
market opportunities for goods and services produced by
skills relating to Islamic financial instruments in the local
member countries.
banking and financial industry that needs to be addressed.
Some of it can be addressed through technical assistance
The Bangsamoro region’s limited production and export
and overseas training, but local academic support would
capability may prevent it from immediately accessing the
be critical. There will also be a need to explore means to
enlarged market base provided by region-wide economic
support financially the development of suitable courses in
cooperation.
academic establishments.
However,
BIMP-EAGA
presents
an
important
Of immediate concern is the capacity of the national
opportunity for Bangsamoro entrepreneurs to learn
institutions
and
the dynamics of international trade and eventually to
administrative groundwork for establishing an Islamic
access the regional export market given the advantage
banking and finance system, and the capacity of the
of physical proximity to the other ASEAN countries of
Bangsamoro authorities to oversee its “on-the-ground”
the BCT. Aside from export markets, these countries’
penetration. Immediate efforts would be needed to obtain
markets for competitively priced food and fuel and
technical assistance, and to organize a core team within the
other production inputs could induce their investors to
Bangsamoro to interface with the BSP and the FSF in laying
consider the Bangsamoro region as a viable production
the groundwork for the legislative and institution agenda.
location.
B.2.6. Promoting Active Participation in Regional
Economic Cooperation
The Bangsamoro Government, through intergovernmental
The Bangsamoro is one of the Philippines’ closest points
that it is represented in trade missions and negotiations in
to the rest of the ASEAN region. Trade between its islands
the AEI and the BIMP-EAGA. It would need to encourage
and neighboring islands in Malaysia and Indonesia was
the Bangsamoro private sector to participate in these
extensive prior to Western colonization. The establishment
events actively, as they will lead the development of a
of the Brunei Darussalam, Indonesia, Malaysia and the
Bangsamoro export industry.
to
lay
the
necessary
legislative
bodies created for this purpose, would need to ensure
Philippines-East ASEAN Growth Area (BIMP-EAGA)
67
recognized these historical ties among the islands in the
B.2.7. Labor Market Policies
sub-region and declared that its founding was merely
The segmentation of the labor market between the
a reassertion of the “pre-colonial ties” binding these
places together. The sub-regional economic grouping
consequently
gained
traction
immediately
after
its
establishment, with private-sector groups in the four
countries
spearheading
economic
cooperation
and
their governments providing the policy environment for
increasing trade.
In 2015, the economies of the ASEAN member-countries
will be integrated under the ASEAN Economic Integration
(AEI) program, under which restrictions on the movement
of most goods, the provision of services and the movement
of persons will be brought down to essential levels.
54
the
formal and informal sector is more pronounced in the
Bangsamoro because a sizeable part of the labor force
is in the latter. Informal employment in the Bangsamoro
can be explained by a situation of both exclusion and
voluntary exit. In the former, the lack of productive
employment option and of unemployment insurance
compels the poor segment of the society to take lowproductivity jobs, typically in the informal sector, rather
than to end up being unemployed.68
In the latter, informality has been associated with lack
of productive economic opportunities, which are often
attributed to scale and prevalence of violent conflict
CH A PT ER
7
in the region. This means that informal arrangement is a
promote further informality with adverse consequences
preferred setup by the households and enterprises to cope
on overall productivity and economic performance.
with conflict risks.69
Labor policies should be flexible and less restrictive.
Deepening of the economy demonstrated by an influx of
Employment protection programs must reflect local
local and foreign direct investments in the Bangsamoro will
conditions in setting welfare standards. At the very
not happen overnight. It is expected that the excess labor
least, ensuring safe working environment, protection of
supply in the Bangsamoro will not be absorbed immediately
child labor, and non-voluntary social assistance (e.g.,
into the formal sector—except for those who will be
Conditional Cash Transfer) must be instituted in the
running the new regional government administration.
informal sector. Along with Pag-IBIG and Social Security
System contributions, these employment protection
It will gain its momentum once the Bangsamoro
programs will be extended to the formal sector and
consolidates its economy over the medium and the long
scaled up over time.
term.
Among labor rules in the formal sector that stand
Hence, the labor market policies that the Bangsamoro
out to have adversely affected domestic and foreign
shall adopt will need to put a premium on increasing
companies in the country—and this will hold true in the
productivity in the region through attraction of labor-
Bangsamoro—are the non-consultative determination
intensive
in
of minimum wage, lack of freedom in the application
education and trainings on specific skill sets. This should
of fixed term contracts (e.g., six-month minimum
be complemented by other active labor market assistance
requirement for regularization of new employees), and
such as job facilitation services by the Department of
restrictive policies governing dismissal of workers. To
Labor and Employment (DOLE)70 or the Bangsamoro
facilitate investment and job creation, there should
labor ministry, and it can even start much earlier among
be preference to relying on collective bargaining
students through guidance counseling services at schools.
mechanisms in minimum wage setting to reflect the
At the same time, labor policies must avoid excessive
local market conditions and to give companies greater
job protection that can otherwise impede job creation or
flexibility in hiring workers.71
investments
and
sustained
investments
55
Table 15: Priority Economy and Livelihood Programs
Objectives
Increasing farm productivity
and income
Priority Programs
Bangsamoro Sustainable Agriculture
Program
Assisting in ensuring food
security particularly to
vulnerable groups
Increasing halal-certified
producers and service
providers
• Support for smallholder farmers and fishers,
including enterprise development and training and
incentive programs
• Irrigation, postharvest facilities
• Support to private sector value-chain and
commercial development
• Develop the halal food industry
(including organic farming)
• Integrated Area Development, including study
on how to transform MILF camps into flourishing
enterprise units in the Bangsamoro
• Study of promoting climate-resilient agriculture
through integrated area development planning
• Develop “Cash-for-Work” Program, particulalry for
vulnerable groups
Massive Job Creation Packages, including
Creative Service Delivery
• Scholarships/trainings, functional literacy
programs, skills and jobs matching
• Support for micro and small entrepreneurs
• Small skills programs (i.e. skills training, capacity-building,
proposal making, etc.)
• Hiring of community facilitators for scaled-up
community-driven development (CDD-BRIDGE)
• Mass mobilization of health and education workers
Bringing back out-migrated
human and financial capital
Balik-Bangsamoro Program
• Incentives for increased banking/investment in
the Bangsamoro, including remittances
• Incentives for young Moro professionals
(scholarships and trainings, with required technical posts)
Trade openness (long-term)
Establishing Open Trade in the Bangsamoro
• Feasibility studies for Polloc and Bongao Ports
and other areas as manufacturing and trading hubs in the
Bangsamoro
• Mainstreaming cross-border trade
• Study on the impact of adopting an open
trading policy in the export processing zones
• Representation of Bangsamoro Government
and private sector in trade missions and negotiations
Improving access to credit
Banking and Finance
• Bangsamoro Fund Facility
• Microcredit according to Shari’ah finance system
• Study on promoting the development of Islamic banking
and finance
Peace Tourism: It’s Even More Fun in the
Bangsamoro
• Scoping for eco-, cultural, and resort tourism in
the Bangsamoro areas
• Support infrastructure
• Specific normalization efforts (governance and security)
• IEC campaign, skills training (livelihood)
Assessing/Prospecting the Viability of the
Extractive Industry Sector
• Development of geological database
• Analysis of institutional and capacity
development requirements for management and
regulation of extractive industries
• Feasibility studies of development of extractive industry
Higher labor force participation
(especially for inactive youth)
Higher household income
Bridging the labor supply gap
Support for long-term fiscal
autonomy and development
(for medium- to long-term
measurement)
56
Components
CH A PT ER
7
NOTES
48 The population of ARMM was estimated at 3.3 million as of August 2010 (Philippine Statistics Authority and UN World Food Programme).
49 The National Statistical Coordination Board (now under the PSA) adopted a new methodology that updates the computation of the gross regional
income accounts beginning 2009. Hence, caution should be exercised in comparing the levels and growth rates of the GRDP time series before
and after 2009.
50 See Lara and Schoofs (2013) and International Alert (2014).
51 Dy and Adriano (2013).
52 Japan International Cooperation Agency (2010).
53 The World Bank (2011) and Lara and Schoofs (2013).
54 The World Bank (2014).
55 Refer to Annex E (Poorest Provinces and Municipalities in the Philippines) for the list of the poorest provinces and municipalities in the
country.
56 World Food Programme and World Bank (2011).
57 World Food Programme (2013).
58 “Proposed Bangsamoro Basic Law,” Article XIII, Section 23.
59 Ibid., Section 24.
60 The concept of “food security” has four dimensions: (a) food availability, the physical presence of food in sufficient amounts;( b) food access, the
ability to acquire food, whether by producing or purchasing food; (c) food utilization, the nutritional value of food as well as the ability of the body
to make use of the nutrients in food; and (d) stability, the ability to maintain food availability, access, and utilization at all times, especially during
emergency and post-emergency situations, in cases of local or global price increases, and other shocks and stresses. Refer to UN-WFP (2014). The
first relates to the agricultural productivity objective; the second on the efficient distribution of food (supply chain or logistics); the third requires
informing and educating the public on maintaining proper nutrition; and the fourth pertains to maintaining buffer stock to meet the emergency
requirements of the public in times of emergency or sudden supply shortfall of strategic food commodities. Attaining food security therefore
requires planning for each of these dimensions.
61 Attaining food security is the first order goal of increasing farm productivity and income given the urgent need to immediately improve the welfare
of the poor Bangsamoro.
62 Refer to Dy (2004 and 2005) and Wallace (2003).
63 The rise in the agricultural development ladder can be accelerated if the Bangsamoro Government promotes the development of agricultural
products wherein it has “revealed comparative advantage.” See Yifun Lin (2012). Aldaba (2014) further expounded on this by identifying the
following crops/products wherein Mindanao (including the Bangsamoro area) has “revealed comparative advantage.” These were fixed vegetable
fats, oil and others; tobacco, unmanufactured; vegetable fibers; tropical agriculture such as fruits and nuts, fruits preserved and prepared, etc.;
fish prepared and preserved; wood manufactures; raw materials such minerals and non-mineral resources; and labor-intensive industries such as
garments manufacturing. Also refer to Adriano (2014).
64 Certificates of ownership in a pool of underlying assets in which the certificates are of equal value.
65 The Philippine Stock Exchange (PSE) has taken steps toward Islamic finance. It has announced 61 of its listed companies as Shari’ah compliant
stocks. The ultimate goal is to develop a market index of these Shari’ah compliant issuers, which the PSE hopes to launch in 2015.
66 Donors could be encouraged to expand their programs involving financial support to small farmers based on Islamic principles. These could be
channeled through rural banks wishing to move away from conventional banking towards Islamic financing, cooperatives, and accredited NGOs.
Associated with the financial support could be appropriate technical support, so enhancing the capacity of these organizations to sustain their
programs over the longer term without the support of donors.
67 Brunei Darrusalam-Indonesia-Malaysia-Philippines East ASEAN Growth Area.
68 de Dios and Dinglasan (2014).
69 The World Bank (2011).
70 DSWD also offers job matching services for the poor.
71 Sicat (2010).
57
58
Infrastructure
CH A PT ER
8
8
Infrastructure
59
8
Infrastructure
Infrastructure72 is indispensable to promoting sustained
Philippines where agglomeration has spawned rapid
growth
social
growth. At present, many existing national, provincial,
cohesion. It facilitates travel and trade by reducing
municipal, and barangay roads in the ARMM are
transaction costs and creating markets. It facilitates the
dilapidated. The ARMM and the surrounding conflict-
and
development
and
encouraging
mobility of people in search of better lives and economic
reward, and it provides better access to social services.
Figure 15: National Road Density (2012)
However, chronic insecurity—combined with rentseeking by local officials, local political clans, and private
armed groups—has driven up the costs of infrastructure
development and deterred contractors who fear for
their lives and safety. As a result, despite substantial
capital investment from the Central Government, the
Bangsamoro suffers from a significant infrastructure
deficit.
A. Context: A Fragmented and
Overstretched Infrastructure Network
Figure 16: Ratio of Paved National Roads (2012)
A.1. Road Network
Good infrastructure enables cheaper and faster movement
of people and goods and services. It enables farmers,
fishers, and other producers to get their products to the
markets efficiently, thereby maximizing their returns. It
increases labor mobility and, by reducing the financial
and opportunity costs of travel, improves opportunities
for viable tourism.
Connective
infrastructure
will
be
crucial
for
the
Bangsamoro to benefit from a spillover of growth from
production centers in Mindanao and elsewhere in the
60
Note: Bangsamoro figures do not include data from six municipalities in Lanao del
Norte and 39 barangays in North Cotabato due to difficulty of data attribution.
Source: BDP-CPT estimate and JICA-Philkoei International, Inc. (using DPWH, DPWHARMM data)
Infrastructure
affected provinces have a road density of only 0.028
CH A PT ER
8
Figure 17: Ratio of Paved Farm-to-Market Roads in ARMM (2005)
kilometer of road per square kilometer of land area (see
Figure 15). This is the worst road penetration rate in the
country.
The ratio of paved national roads in the ARMM is better
than in the rest of Mindanao and the rest of the Philippines
(see Figure 16). However, the percentage of paved farm-tomarket roads (FMRs) in the ARMM is very low (see Figure
17). As a result of poor connection of tertiary roads to the
main highway, farmers face great difficulties and price
disadvantages in bringing their goods to processing and
marketing centers.73
Source: JICA-Philkoei International, Inc. (using DAR-ARMM and the World Bank’s
2005 Joint Needs Assessment of Conflict Areas in Mindanao report)
Figure 18: Ratio of Irrigated to Estimated Irrigable Area
(2000–2012)
The dilapidated condition of roads in the ARMM, low
pavement ratio, slow road network development, and poor
road design indicate institutional and capacity deficiencies.
The factors for these include poor maintenance procedures,
inadequate provision of maintenance funds, and poor
project implementation by agencies such as DPWH,
DPWH-ARMM, and engineering offices of LGUs. These
could be traced to neglect by past administrations, which
led to low productivity and limited income opportunities
for rural communities.
In the short term, priority will need to be given to,
Source: DA-BAS
addressing the main bottlenecks of connectivity, including
developed according to the requirements of the locality
the poor condition of FMRs and the incomplete and
and the type of crops. The needs of a growing population
unpaved national roads and main arterial roads. Ongoing
for potable water and the needs of farms for water to
projects included in the General Appropriations Act (GAA)
increase their productivity will need to be balanced.
could be completed during the transition period.
Construction of irrigation facilities will also have to
consider adaptability to climate change.
A.2. Irrigation
Irrigation, which allows several harvests per season, is vital
The priority needs for the irrigation subsector in BCT
to increasing farmer productivity, particularly in the rice
include: (a) development and construction of national
subsector. The ARMM has the lowest irrigated area relative
and communal irrigation systems and (b) development of
to potentially irrigable land, at only 25.8% (see Figure 18).
LGU capacities to assist in maintaining irrigation canals
It should be noted, however, that irrigation requirements
and communal irrigation systems.
differ among crops. Rice requires a relatively abundant
supply of water, while corn, cassava, coconut, and banana,
A.3. Airports and Seaports
which are the main crops in the Bangsamoro, require less
Three principal airports (Awang, Sanga-Sanga, and Jolo)
water. Different irrigation systems and facilities need to be
and three community airports (Malabang, Cagayan
61
de Sulu, and Wao) serve the BCT (see Map 6). The
ASEAN region and to release the economic potential of the
Bangsamoro has no international airport. The principal
Bangsamoro.
airports in nearby regions (i.e., Laguindingan in Cagayan
de Oro, General Santos, and Zamboanga City) serve as
The priority needs of airports in the BCT include new
important entry points to the BCT. There are four base
passenger terminal facilities, security equipment, baggage-
ports (Jolo, Bongao, Lamitan, and Malabang), 11 sub-ports,
handling equipment, parking facilities, firefighting equipment,
and five private ports managed by the ARMM’s Regional
navigation facilities, and widening and lengthening of
Ports and Management Authority. The Regional Economic
runways and aprons. In seaports, the priority concerns are
Zone Authority manages Polloc Port, a key facility for
the underutilization of Polloc Port and the need to improve
regional economic development. The Philippine Ports
or rehabilitate port facilities. Institutional and capacity
Authority manages Isabela Port in Basilan.
weaknesses are likewise serious concerns, as evidenced by
unclear delineation of responsibility, poor maintenance, and
Despite intermittent improvements and rehabilitation
efforts, key facilities (Awang Airport and Polloc and
Bongao Ports) require comprehensive upgrading to
A.4. Power Sector
international standards, as these will be needed to
The challenges in power generation and supply in the island
promote trade in the BIMP-EAGA sub-region and
provinces of Bangsamoro are different in character from
Map 6: Major Airports and Seaports in Mindanao (2014)
Source: DPWH (2014)
62
inadequate allocation of funds for maintenance.
CH A PT ER
Infrastructure
8
those in the mainland provinces of Mindanao. The five
supply; (b) increased collection efficiencies of ECs; (c)
electric cooperatives in Basilan, Sulu, and Tawi-Tawi have
viable solutions to the problem of illegal connections;
small loads,74 high supply-chain costs, and a dispersed
and (d) improving the capacity of ECs to forge innovative
customer base. They lack large industrial or commercial
arrangements that will encourage power generation
loads.
while raising collection fees. In Basilan, Sulu, and TawiTawi, the top priority involves availability and reliability
On the main island, the two electric cooperatives (ECs)
of electricity supply, and the promotion of a culture of
(i.e., LASURECO in Lanao del Sur and MAGELCO in
payment for service among consumers.
Maguindanao) are connected to the main Mindanao grid
and, therefore, benefit from the much lower cost of bulk
A.5. Flood Control
power (see Table 16). However, these networks have
Flooding in low-lying areas of the BCT, particularly in
been starved of investment, and although there are some
Maguindanao, is a continuing concern. The problem is
industrial or commercial loads, the two ECs suffer from
perennial in river systems of the Mindanao River Basin
frequent power shortages in the Mindanao grid as a whole.
(MRB)—such as the Rio Grande de Mindanao, AmbalSimuay River, Kabulnan River, and Libungan-Alamada
As a result, though coverage at the municipal and barangay
River—and wetlands, such as Ligawasan Marsh, Ebpanan
levels is nearly universal across the Bangsamoro, the
Marsh and Libungan Marsh. During the rainy season
household electrification rate is only 34% as compared
or periods of high precipitation in the upper reaches
with the national rate of 74%; illegal connections are
of the MRB, excess run-off water flows toward the sea,
pervasive; and service fee collections are poor.
passing near Cotabato City, causing flooding there and
in surrounding areas. The most flood-prone areas in the
For mainland Mindanao, the priority gaps/needs in the
BCT are Cotabato City in Maguindanao; Sultan Kudarat
power subsector include: (a) a more reliable electricity
(Nuling) and Parang in Maguindanao; Munai in Lanao
Table 16: Status of Electrification in ARMM (2013)
ARMM Status of Electrification
Municipalities/
Cities
Coverage
Energized
%
Tawi-Tawi Electric Cooperative, Inc.
9
100
Siasi Electric Cooperative, Inc.
2
Sulu Electric Cooperative, Inc.
Basilan Electric Cooperative, Inc.
Barangays
Energized
completed
%
186
186
100
0
100
66
66
100
16
100
330
330
14
100
269
2
100
Lanao del Sur Electric Cooperative,
Inc.
41
Maguindanao Electric Cooperative,
Inc.
Cagayan de Sulu Electric
Cooperative, Inc.
Total
Potential
Connections
Unenergized Potential
Energized
completed
%
47,000
12,137
26
0
13,000
3,604
28
100
0
85,000
24,218
28
269
100
0
75,000
38,818
52
17
17
100
0
5,000
1,895
38
100
1,175
1,175
100
0
138,000
56,357
41
30
100
404
398
99
0
116,000
26,303
23
114
100
2,447
2,441
99
0
479,000
163,332
34
Source: NEA (2013)
63
del Norte; Balo-i Kapatagan, Bubong, Ditsaan-Ramain,
to begin by ensuring the security of telecommunications
Taraka, Tamparan, Lumbayanague, and Masiu in Lanao
personnel and investments.
del Sur; Pikit in North Cotabato; Jolo in Sulu; and Isabela
City in Basilan.
B. Strategic Goals
Some BCT areas are also prone to other types of disasters,
The overall strategic goal is to develop a well-planned,
including
storm
surges,
heavy
siltation/landslides,
earthquakes, and tsunamis. Maguindanao, which is a
particularly high-risk area for earthquakes, is also among
the areas in the BCT that are at higher risk of earthquakeinduced shallow landslide. BCT areas that are vulnerable
needs-based, and sustainable infrastructure network and
facilities that support five targeted strategies, as shown in
Table 17.
B.1. Roads and Bridges
to tsunamis include Cotabato City, Parang, Maguindanao,
During the transition, the strategy for roads and bridges
the coastal towns of Lanao del Sur, Maguindanao, Sultan
will be to: (a) sustain current efforts to improve national
Kudarat, Basilan, Sulu and Tawi-Tawi, and Isabela City in
roads through rehabilitation, reconstruction, upgrading,
Basilan. Further discussion of disaster vulnerability in the
and maintenance; (b) address the most immediate and
Bangsamoro can be found in Chapter 10.
most un-served needs/gaps, especially at the barangay
or community level by paving FMRs and building new
The pressing need to mitigate flooding in the BCT
ones; and (c) develop capacity in infrastructure planning,
calls for the following measures: (a) preventing rapid
feasibility preparation, project supervision/management,
deforestation and denudation of forest areas that help
and monitoring and evaluation for infrastructure staff.
prevent heavy siltation in river systems; (b) prohibiting
conversion of primary forests/forestlands into croplands
The river network in the BCT can be tapped as an
and settlement areas; and (c) strict implementation of
alternative and low-cost mode of transport, especially for
laws and policies relating to land use and garbage/waste
passenger and agricultural produce. Construction of river
disposal.
wharves would encourage development of this mode of
transport and enhance open access to hard-to-reach areas.
A.6. Telecommunications
Mobile phones in the Philippines numbered just over
Construction of FMRs would facilitiate transport of
100 million as of the end of 2012, according to data from
farm produce to municipal, provincial, and national
local telecommunications companies. Internet access in
roads leading to processing and marketing centers. A
the country was limited to 33% of the population as of
Bangsamoro road master plan will be formulated—with
end September 2011, compared with the Southeast Asia
emphasis on the connectivity within the hierarchy of road
regional average of 38%.
networks, identifying the priorities for new construction,
rehabilitation, and regular maintenance work—and will
In 2010, according to the latest available data, 74% of
have a dedicated plan for FMRs.
all ARMM had access to cellular phone signal, and 4%
64
had access to landline telephone systems.75 From the
In the short term, FMRs for which regular funding from
transition period to the long term, the need for modern
the ARG and national government is available should
telecommunications
the
be constructed without delay. Feasibility studies should
full range of development purposes, from promoting
be undertaken for those given priority by Bangsamoro
economic activity to building social cohesion. Attracting
communities in the CVEs so they can be included in the
massive commercial interest in this sector would have
priority projects for the Special Development Fund (SDF).
infrastructure
will
include
Infrastructure
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Table 17: Infrastructure Strategies and Project Types
Targeted Strategies
Project Types
a. Infrastructure to connect to economic growth
centers
National, provincial roads and bridges; airports and seaports;
telecommunications
b. Infrastructure to support production
Farm-to-market roads (FMRs), irrigation facilities, small landing ports, energy
requirements for economic activity
c. Infrastructure for access/social justice
Access roads, household electrification (especially off-grid) for far-flung areas
d. Infrastructure to support security and
normalization outcomes
Investments for the six priority camps and other requirements targeted for
normalization
e. Infrastructure for climate-resilience, DRRM
Flood control, retrofitting of existing infrastructure
During the transition period, national road projects will
In the case of communal irrigation systems (CIS),
be implemented by the Department of Public Works and
the responsibility for improving, rehabilitating, and
Highways (DPWH), while provincial and municipal road
maintaining existing systems and developing new
projects will be done by the DPWH-ARMM (see Map 7).
systems had been devolved to LGUs under the Local
Barangay road and FMR projects shall be implemented
Government Code (LGC) of 1991. As the limited
by the Department of Agriculture (DA), Department of
financial resources of LGUs have placed irrigation at
Agriculture and Fisheries (DAF)-ARMM, Department of
a low spending priority, the Bangsamoro Government
Agrarian Reform (DAR), and DAR-ARMM.
would be in the best position to intervene in this respect
The passage of the BBL, the successful conduct of a
during the medium-term.
plebiscite, and the creation of the BTA in 2016 are
In the short term, a Bangsamoro Irrigation Master Plan
envisioned to usher in a seamless transfer of functions and
will be needed, taking into consideration the different
turnover of national, local, and barangay/FMR projects
irrigation needs of various agricultural crops and the
that are still ongoing, under terms and conditions spelled
areas where they are planted. While current irrigation
out.
efforts of the national government is biased toward rice
production, these will not properly respond to the crop
To prepare for this event, teams of qualified Bangsamoro
mix found in the Bangsamoro, given the predominance
personnel could be created and the team members
of other crops (i.e., cassava, corn and coconut) grown in
subsequently be appointed to leadership positions in
the area.
planning, project implementation and supervision, and
monitoring of road and bridge projects particularly for
Also, if growing of more high-value crops (i.e., banana,
local roads and barangay/FMRs.
palm oil, coffee, cacao, pineapple, and rubber) is to
B.2. Irrigation
be promoted, these will require different irrigation
systems. These requirements will have to be inputted in
The development strategy for irrigation in the Bangsamoro
the Irrigation Master Plan. Climate change adaptability
is to provide the funding needed to rehabilitate, improve,
measures in the construction of irrigation facilities should
and maintain existing systems and construct new ones.
also be factored into the master plan.
65
Map 7: Transportation Network in the Bangsamoro (2014)
Source: DPWH (2014) and DOTC (2010)
B.3. Airports and Seaports
B.4. Power Sector
For airports and seaports in the BCT, the development
For the power subsector, the strategy calls for: (a)
strategy is to continue and expedite efforts to raise their
monitoring by the Bangsamoro leadership of the Central
service levels through rehabilitation, improvement, new
Government’s and the private sector’s development
construction, and maintenance. Preliminary engineering
efforts in the Mindanao grid, and (b) formulation and
and feasibility studies would need to be undertaken
implementation of programs and projects to develop
during the transition period to determine the viability of
renewable energy, particularly for off-grid areas.
establishing an international airport in the BCT and of
66
building more airports to form part of a viable multi-modal
The
transport system in the region. Free and unhampered
mechanisms through which institutional and technical
movement of people and goods through airports and
arrangements on power generation, transmission, and
seaports connected to an efficient land transport system
distribution may be best coordinated with the Central
and good roads would be an important way of speeding
Government,
up development of the BCT, especially considering
exclusive powers over Lake Lanao,
the economic potential of domestic and international
by two hydroelectric plants in the BCT (Agus 1 and Agus
tourism. It is noted that safety and security challenges may
2) is delivered to the Mindanao grid. The BTA would
continue and severely impact travel in the region.
need to study and arrange with the National Electrification
Bangsamoro
as
leadership
the
will
need
Bangsamoro
76
to
identify
Government
has
and power generated
Infrastructure
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Map 8: Barangay Access to Electricity and Electrification Projects in the Bangsamoro (2014–2015)
Percent of households with
access to electricity
0 - 20.00
Source: NHTS (2009) DOE-NEA (2014)
Administration (NEA) and the Central Government how the
already providing services—but also the potential for
seven ECs operating in the BCT can be made responsible
other players (NGOs, investors, private energy services
to the BTA.
providers, and communities) to play important roles, in
some cases in partnership with each other and with the
For the short term, the strategy includes raising the quality
ECs.
of electricity services to realistic levels while laying the
groundwork for full improvement in the medium and the
A strategy to accelerate access to modern energy in
long term, which will be crucial to the region’s sustainable
the Bangsamoro should attempt to: (a) strengthen
socioeconomic growth (see Map 8). This strategy includes:
the electrification function of the ECs both for grid
(a) electrification and energy services; (b) EC support to
connections and solar home systems; (b) ensure credit
private sector commercial and industrial investment; and
and subsidy flows to the ECs where grid rehabilitation,
(c) institutional strengthening of the Bangsamoro ECs.
extension, and intensification are necessary and viable;
B.4.1. Electrification and Energy Services
(c) ensure that non-EC providers have non-discriminatory
access to subsidy funds for solar home system
The strategy to increase connections has to recognize
solutions, such as those provided for in photovoltaic
that additional connections must be commercially viable.
(PV) mainstreaming; and (d) support service providers
Any proposed solution would need to recognize not
with targeted information and educational campaigns,
only the unique positions of the ECs—since they are
particularly among households and communities on the
67
critical role that fair and transparent fees-for-service play
in ensuring sustainable services.
B.4.2. Renewable Energy
The BCT has renewable energy (RE) resources that
have significant potential. Geothermal manifestations
are found in the mountains of Dakula, Malabang, and
Tuayan. Its complex river systems give the BCT an
estimated 7,380 megawatts of potential hydroelectric
power, in addition to those already being harnessed.
However, watershed degradation, aggravated by climate
change impacts, is affecting river flows that could
applications, especially for productive purposes.
B.4.3. Electrical Cooperative Support to Commercial
and Industrial Investment
To provide good-quality, reliable, and cost-effective
power that will encourage private-sector investment,
which in turn will generate employment, the BDP
recommends an engagement strategy (similar to that being
proposed by Unifrutti with MAGELCO)79 that will benefit
all stakeholders: the new investors that need power
solutions, the ECs that will be strengthened operationally
compromise hydropower availability.
and financially, and households that will have new
The Bangsamoro also has wind resources that can be
also be promoted in declared export-processing zones
harnessed for small wind systems for basic energy
services and rural electrification projects. As with the
rest of the country, solar and wind energy in the BCT can
be harnessed for rural electrification. Biomass is another
significant power source for the region. The extent of
biomass potential has recently been established for the
BCT, pioneered by Lamsan Power Corporation in Sultan
Kudarat, Maguindanao,77 which installed a 15-megawatt
(MW) power plant. Green Earth Enersource Corporation
has signified its intent to invest in a 4.6-MW biomass
power plant, as has the Philippine Trade Center, which
is also putting up its own power plant for its cornstarch
milling plant in Sultan Kudarat, Maguindanao.
For ocean energy, a promising site for ocean thermal
conversion (OTEC) lies 18 kms from the town of
Omosmorata, in Basilan.78 These potentials will have
to be considered with long-term financial viability and
sustainability in mind. To translate these potentials
into reality, the Bangsamoro Government will need to
undertake the following:
a. Inventory of the available RE sources through
resource assessments;
b. Formulation of RE Development Plans to translate
RE resource potential to reliable sources of power,
especially for off-grid communities; and
68
c. Showcase household and community level RE
opportunities for electrification. This approach could
in the region, for potential locators with large energy
requirements. Excess power generated in the zones could
be sold to outside consumers at lower costs.
This model can be applied to all major investments that
require dedicated infrastructure, although cases will have
to be assessed on an individual basis. The lack of a grid
in Basilan, Sulu, and Tawi-Tawi will be a constraining
factor, as generating reliable power there will involve at
least some oil-fired power generation (even if the system is
hybridized by also incorporating renewable energy).
B.4.4. Institutional Strengthening of the Bangsamoro
Electrical Cooperatives
A key challenge confronting the Bangsamoro Government
involves the seven ECs operating in the BCT. While the
Bangsamoro has exclusive power over the regulation of
power generation, transmission, and distribution operating
exclusively in the BCT, the Small Power Utilities Group
of the Central Government’s National Power Corporation
(NPC) will continue to provide its technical expertise
during the transition period in increasing generating
capacities that feed electricity to consumers through ECs
operating in Basilan, Sulu, and Tawi-Tawi.
There needs to be a focus on building capacity in
energy services, emphasizing not only the connection
Infrastructure
CH A PT ER
8
aspect, but also important long-term relationships with
to all EC consumers that “business as usual” with regard
customers of all kinds. This has not been straightforward
to nonpayment of electric bills would no longer be
in the Bangsamoro, where utility company employees
tolerated.
have often been injured and sometimes killed by
customers, and where today, for example, some of the
B.5. Flooding
secured meter installations that have been rolled out in
Flooding in the BCT can be addressed by creating and
LASURECO have been vandalized or destroyed.
maintaining partnerships with the local communities
for watershed protection and through rehabilitation
Technical assistance is being extended to MAGELCO
programs. Only through such sustainable partnerships
with respect to: (a) working with private-sector investors;
can successful reforestation programs be implemented
(b) executing front-end engineering design (FEED) and
on a sustainable basis. If people living in the forest
detailed engineering design (DED) studies for sub-
areas participate in reforestation programs and are
transmission assets; (c) conducting competitive and
compensated for protecting the forestlands or for planting
transparent procurement; (d) supervising contractor
trees, they will have greater motivation to protect the
installation of lines and substations; (e) working
forest. The needs will have to be regularly monitored to
with lenders on satisfactory security and collateral
ensure that reforestation targets are met.
provisions; (f) managing commercial relationships with
large customers; and (g) managing processes related
The challenge is to make people living in forestlands
to environmental, social, and gender impacts in their
aware and cognizant of the dire consequences of
investment operations. Similar assistance should be
deforestation to those living in flood plains. Likewise, it
extended to other ECs across the Bangsamoro.
is a challenge to the Bangsamoro leadership to provide
people living in the forests with sources of livelihood
Mounting debts to the NEA and NPC seriously affect
other than using fallen trees (which are typically
the ECs’ financial condition, which results in further
converted into charcoal).
deterioration
of
services.
There
are
possibilities,
however, of legislation under which interest charges of
ECs’ arrears to the NEA and NPC directors may also be
changed. The Bangsamoro leadership could reach out
Table 18 sets out priority infrastructure interventions.
69
Table 18: Priority Infrastructure Programs
Objectives
Increase volume of passengers
and goods, road density
Priority Programs
Strengthening the Bangsamoro
Infrastructure and Logistics System
Increase household access to
electricity
Energy
Enhance capacity of
Bangsamoro communities
to adapt to climate change
and undertake DRRM for
social justice and to mitigate
displacement
CCA/DRRM-Responsive Infrastructure
Components
• Roads and bridges (FMRs), airport and seaport upgrading
for the islands
• Developing a transport and logistics masterplan
(including a dedicated plan for FMRs) for the Bangsamoro
that identifies and prioritizes road network development of
FMRs, municipal, provincial and national roads
• Tapping the river network of the BCT as alternative and
low-cost mode of transport
• Improving drainage system
• Study feasibility of reopening Balo-i and Malabang
airports and developing an international airport for the
Bangsamoro
• Establishment of quick roads/bridges repair and
maintenance system in BCT
• Energy and household electrification investments (grid
and off-grid)
• Identifying mechanisms on the use of Lake Lanao waters
for power generation
• Establishing mini-hydro electric power plants
• Revisiting and reviewing the Mini-Hydro Power Generation
Study
• Inventory and assessment of Renewable Energy sources,
including feasibility and engineering studies
• Renewable Energy Development Plans for BCT provinces
• Showcasing stand-alone household and community
renewable energy applications
• Strengthening Bangsamoro Electric Cooperatives through
better partnerships with private investors and institutional
development programs
• Ambal-Simuay River Flood Control
• Slope protection
• Creating and maintaining partnerships with local
communities for watershed protection and rehabilitation
programs
NOTES
72 This chapter deals only with economic physical infrastructure. Infrastructure relating to social services (schools, hospitals, water and sanitation,
etc.) is discussed in Chapter 9.
73 In the absence of FMRs, traders who have access to transportation can more easily monopolize trade in the area. This allows them to dictate the
farmgate prices paid to the farmers, particularly for perishable goods.
74 Electricity demand in terms of connected megawatts (MW) and energy consumption in kilowatt/hours (kWh).
75 Philippine Statistics Authority-Census on Population and Housing (2010).
76 This is one of the powers exclusive to the Bangsamoro Government as provided in the “Annex on Power Sharing” of the FAB.
77 Philippine Information Agency, PhP 2.5 B investments poured in ARMM in 1st semester of 2014.
78 Benito (2014).
79 Unifrutti, an agribusiness investor, is contemplating a major investment in banana plantations. It will need reliable power for the company’s deep
bore well irrigation systems and packing sheds; the load of close to 10 MW will double MAGELCO’s current peak load and give it a no-loss, fullpaying customer. Technical losses on the MAGELCO system will be cut in half, the collection rate will double, and revenues will more than double.
By far the cheapest solution for Unifrutti will involve 69 kV sub-transmission lines and associated substations that will be owned and operated
by MAGELCO; these facilities will support an expansion of MAGELCO services to other users as well, such as the existing households and market
areas and new ones that will come as Unifrutti makes its investments. However, MAGELCO is not creditworthy; the key to it being able to play its
role reliably is to do so in partnership with Unifrutti, lenders, government agencies, and donors. An emerging concept would enable MAGELCO to
borrow to construct the power infrastructure, with revenue for electricity services to Unifrutti sequestered so that lenders are assured of payment.
70
Social Services
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9
Social Services
71
9
Social Services
A. Context: Education, Health, and WaSH in
the Bangsamoro
The Bangsamoro registers some of the country’s worst
social indicators, particularly in the areas of education,
Figure 19: Human Development Index in the Bangsamoro
(2000–2009)
health, and Water, Sanitation and Hygiene (WaSH).
Limited access to social services is one of the sources
of injustices that have fueled conflict in the region.80
Years of protracted conflict, underdevelopment, and
mismanagement of public funds have led to destruction
of facilities, loss of equipment, and discouragement of
donors, social service providers and workers.
The result is low educational attainment, poor health
outcomes, and widespread child malnutrition. Though
the high poverty incidence in the Bangsamoro can be
Source: Philippine Human Development Report (2005 and 2012/13)
attributed partly to the lack of good governance and
five
livelihood opportunities, the highly inadequate provision
proportion has completed high school (see Figure 21).
of social services is also a major factor in the decline in the
That this is no artifact of the region’s age-structure but
overall welfare of the population, which disproportionately
a real deficiency is confirmed by the large numbers of
affects poor households vis-à-vis other households.
functionally illiterate adults in the region.
adults has no schooling at all and only a small
These significant barriers to development, compounded
by
repeated
cycles
unfavorable
The Bangsamoro’s net enrolment rates (SY 2012 and
largely explain why the Human
2013) of 72.5% in primary school and 26.1% in
Development Index (HDI) in the region is significantly
secondary school, respectively, are far below the national
below the national average and has even fallen in recent
averages (95.2% and 64.6%, respectively),82 despite
years (see Figure 19).
recent improvements. Cohort survival is also significantly
“neighborhood effects,”
of
81
violence
and
A.1. Education
72
lower than the national average. In SY 2011-12, of
students who had enrolled in Grade 1, only 23.1% had
The most telling and relevant fact regarding the state
made it to Grade 6, compared with the national average
of education in the Bangsamoro is that one in every
of 70.9% (see Map 9). In the secondary level, only
Social Services
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Map 9: Barangay Access to Primary Education Facilities and Distribution of Population by Barangay (6–12 Years Old) (2010)
Source: PSA-CPH (2010)
Figure 20: Education Attainment, All Ages (2010)
Note: Mindanao refers to Mindanao excluding ARMM.
Figure 21: Education Attainment, 18 Years Old and Above (2013)
Source: PSA-LFS (2013)
73
45.1% of students who had enrolled for first-year high
The leading causes of morbidity and mortality are
school stayed on up to fourth year; the national average
noncommunicable
is 74.2%. Considered altogether, only one in every 10
country, while tuberculosis and respiratory infections
students who begin elementary education will finish high
are prevalent infectious diseases. Lack of potable water
school. Given the low enrolment and high dropout rates,
and inadequate sanitation and hygiene result in high
less than 6% of children in the ARMM will graduate high
levels of diarrheal diseases. Malnutrition as manifested
from school.
in wasting and stunting is also a significant problem
diseases,
as
elsewhere
in
the
in the Bangsamoro, with very low micronutrient
This situation is the product of a complex of factors,
supplementation levels. Deworming activities have
including the displacement of people owing to conflict,
reached only a limited number of beneficiaries.
ill health, lack of economic opportunities that justify
literacy and formal education, poor delivery of education
Access to essential maternal health services urgently
services, and cultural factors, particularly the low priority
requires improvement. The ARMM is the only region
given to achievements of women and girls. The low
in the country where the proportion of women that
educational attainment and associated high levels of
received antenatal care, at 52.8%, is lower than the
illiteracy compound the development challenges in the
national average of 95.4%.85 Facility-based delivery is
Bangsamoro and further limit livelihood opportunities.
exceptionally low at 12.3%, and only 20.4% of all live
births are attended by a skilled health professional, such
A.2. Health
as a doctor, nurse, or midwife. Absence of maternal
Health outcomes in the ARMM are significantly worse
health services is a major cause of maternal mortality,
than in the rest of the Philippines. Maternal mortality is
with the vacuum being filled by reliance on traditional
67.35 per 100,000 live births in the ARMM, compared
birthing by hilot (practitioners of traditional native
with the national average of 64.76 per 100,000 live
methods). The ARMM also has one of the lowest rates of
births.
full immunization coverage at 29.4% (see Figures 22 and
83
Infant mortality is at 32 per 1,000 live births
in the ARMM, compared with 23.9 nationally.
Figure 22: Percent of Children (12–23 Months Old) with No
Vaccinations (1998–2013)
Note:
84
23).
Figure 23: Percent of Children (12–23 Months Old) Who
Received All Basic Vaccinations (1998–2013)
For 2008 and 2013 figures, data on basic vaccines include BCG, measles and three doses each of DPT and polio,
and hepatitis B, while for 1998 and 2003 figures, basic vaccines exclude hepatitis B.
Source: PSA-NDHS (1998, 2003, 2008, and 2013)
74
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Map 10: Barangay Access to Health Centers and Distribution of Population by Barangay (2010)
With less than half (46.7%) of households having
access to healthcare facilities (see Map 10), provision of
Figure 24: Government Health Workers per 100,000
Population (2011)
preventive and palliative care is similarly limited. This
is partly because of insufficient skilled and licensed/
registered medical personnel and health workers (see
Figure 24) working on full-time basis, especially in the
provision of primary healthcare at rural health units.
Poorly equipped and poorly staffed health facilities and
deficient transportation, communication, and referral
systems further contribute to this problem. In addition,
violent conflict often disrupts the existing healthcare
network, as it destroys infrastructure and interrupts
access and telecommunications networks. High-level
Note: * Expressed per 10,000 population
Source: DOH-FHSIS (2011)
care, access to medication, and hospital services are
there are no tertiary hospitals in the region. The only
also insufficient, with 2,326 hospital beds in the ARMM
tertiary facility in the BCT is the Cotabato Regional
unable to meet the existing DOH standards. Significantly,
Medical Center (CRMC), which is outside of ARMM.
75
The prohibitive cost of medical care and hospitalization
prevents households from seeking formal healthcare,
which results in a very low utilization rate in the region.
Only 43.7% of ARMM households have access to health
insurance coverage, compared with 63.9% in Mindanao
and 62.8% nationwide in 2013. Similar pattern is true for
health insurance coverage among women (see Figures
25 and 26). Both supply-side and cultural factors are
also important barriers to expanding health insurance
coverage. PhilHealth still does not accredit many
hospitals in the region, and a non-Shari’ah compliant
insurance system is considered haram.
Figure 25: Percent of Households with Health Insurance (2013)
A.3. Nutrition
Despite some improvement between 2011 and 2013,
the ARMM ranked 7th, 2nd, and 5th highest among
regions in the Philippines in prevalence of underweight,
stunting, and wasting, respectively, among children
below five years old (see Table 19). Given the adverse
consequences of a high malnutrition rate among children
on the quality of human capital in the future, the
Bangsamoro Government will need to devote special
attention and considerable resources to this concern
during the short and the medium term.
Figure 26: Percent of Women (15–49 Years Old) with
Health Insurance (2013)
Source: PSA-NDHS (2013)
Table 19: Prevalence of Undernutrition Among Children (0–5 Years Old) in ARMM (2008–2013)
Year
Area
% Underweight
% Stunting
% Wasting
2008
Philippines
20.7
32.4
6.9
ARMM
24.4
39.7
10.3
Philippines
20.2
33.6
7.3
ARMM
26.2
43.5
10.0
Philippines
19.9
30.3
7.9
ARMM
21.9
39.0
8.5
2011
2013
Source: DOST–FNRI–NNS (2008, 2011, and 2013)
76
Social Services
A.4. Water, Sanitation, and Hygiene (WaSH)
Despite abundant water resources, ARMM communities
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Figure 27: Percent of Households with Access to Improved
Safe Water Supply (2011)
have limited access to safe drinking water and sanitation
facilities (see Map 11). Access to safe water supply and
sanitary toilet by households is low (see Figures 27
and 28), which is a major factor in regular outbreaks
of water-borne diseases. There are conflicting data on
access to safe water supply (DOH-FHSIS 2011: 57.1%
vs. FIES 2012: 36.6%) and sanitary toilets (DOH-FHSIS
2011: 26.9% vs. FIES 2012: 22.5%), which needs to be
addressed to give a better grasp of the true situation in
the BCT. However, the current dominant practice in the
area is the use of readily available water sources, such as
dug wells and spring water, which are likely to be easily
contaminated.
Figure 28: Percent of Households with Access to Sanitary
Toilet Facilities (2011)
Among the key challenges in the WaSH sector is the
project-type approach of providing these facilities in
the region, which has led to WaSH provision that is
fragmented at best. WaSH provision is not only a health
issue but also concerns economic, social, environmental,
governance and cultural issues. Moreover, cycles of
displacement over the years due to outbreaks of conflict
and natural disasters have also affected population
and settlement patterns, which confound attempts to
determine the coverage of supply and the population’s
access to WaSH services in the Bangsamoro territories.
Source: DOH-FHSIS (2011)
A.5. Housing
Shelter is a basic right of every person. The 827,032
(backlog plus new households) in the region at 80,896
households in the region86 are unevenly distributed
units in 2014.
within the ARMM (see Table 20). Settlements tend to
cluster along the main road network of the mainland
More than 20,000 families in the Bangsamoro are informal
and along the coastline/seashore of island provinces. As
settlers or live in areas without consent of owners.
a result, most facilities and services are inaccessible to
According to a 2011 survey of the National Housing
many people living in the hinterland or islands. A big part
Authority (NHA), most of them were in Sulu. The second
of the rural population is overlooked in the provision of
and third highest numbers of informal settler families (ISF)
these facilities and services.
were in Tawi-Tawi and Basilan. Most of the houses were
built during the past 15 years. These are made of wood,
The Housing and Urban Development Coordinating
bamboo and sawali-matted bamboo strips, and makeshift
Council (HUDCC) recorded the total housing needs
materials.87
77
Map 11: Barangay Access to Waterworks System and Distribution of Household Population by Barangay (2010)
Table 20: Housing Needs Estimate by Housing Indicator in ARMM (2010–2017)
2010
2011
2012
2013
2014
2015
2016
2017
21,230
21,910
22,326
22,750
23,182
23,622
24,071
24,528
186
188
192
196
200
204
208
212
Dilapidated/ Condemned
2,835
2,871
2.926
2,983
3,041
3,100
3,160
3,221
Doubled up Households
37,545
38,024
38,760
39,510
40,274
41,053
41,847
42,656
9,181
9,356
9,534
9,715
9,899
10,087
10,279
71,174
73,560
74,973
76,412
77,878
79,373
80,896
1. Accumulated Need
Rent-free w/o consent of
owners + informal settler
Homeless
2. Future / Recurrent Needs
New Households
Total
Source: HUDCC (2014)
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About 10% of the ISFs will need resettlement because
medium term. This highlights the distinctive88 policy
they live in danger areas in Lamitan City in Basilan,
reforms in a post-conflict environment.
Bangungul in Sulu, and Panglima Sugala in Tawi-Tawi.
During the transition period, interventions shall be
Land ownership is a major and complex problem, being
geared toward the social services by increasing access
a result of a series of events spanning decades that have
to quality basic services and reducing the risk of conflict
influenced the internal development in the Bangsamoro.
recurrence by making the peace dividends felt by
It is also often the cause of rido.
affected communities.
A.6. Gender and Development
Programs and projects in the medium term shall be
As the Bangsamoro Government faces the challenge of
rebuilding a society, it is noted that women in all sectors
can play in an important role in a post-conflict setting.
At present, women are still marginalized in the political,
economic, and social structures.
The
highest
Gender Disparity Index (GDI)
anchored in enhancing the human capital formation
in the Bangsamoro, through the deepening of the
implementation of universal access to basic education
and health, and creating a skilled and able workforce,
to support the long-term prospects of high and stable
growth.
in
the Philippines was registered in the provinces of
Maguindanao, Sulu, Tawi-Tawi, and Basilan. Compared
with men, women in these areas are disadvantaged in
terms of standard of living, educational attainment, and
life expectancy.
A number of Muslim women have left for work in foreign
countries to help support their families. Like other
migrant workers, they are subjected to or face the risk of
exploitation and physical abuse, and the situation is often
exacerbated by their having low education and lacking
awareness of their rights.
In the Bangsamoro area, most cases of gender-based
violence (GBV) against women and girls go unreported
because of a culture of silence. GBV constitutes a breach
Greater attention will be given to delivering social
services to women, the youth, and vulnerable groups
who occupy the tail-end of the social development
ladder. Special institutional arrangements, including
creative/alternative mechanisms for service delivery,
will have to be forged by the Bangsamoro Government
during the short and the medium term to ensure that
their social development needs are adequately met.
B.1. Education
The short-term strategies in the area of education include
the following:
B.1.1. Intensifying Delivery of Learning, Competency,
and Skills Development Programs for the
Illiterate Inactive Youth Population (15–24
Years Old) in the Bangsamoro
of the fundamental right to life, liberty, security, dignity,
Providing jobs to unskilled young adults, MILF members,
nondiscrimination, and physical and mental integrity. It
and their communities would significantly influence the
reinforces gender inequality and limits the participation
pace of the Bangsamoro economy’s recovery during
of women in meaningful development.
the short term, and reduce the potential for renewed
B. Strategic Goals
Providing access to basic services to the Bangsamoro
people entails both a targeted strategy in the short term
and a spatially- and socially-blind strategy over the
conflict. At the same time, unskilled labor will need to be
provided with skills to be absorbed into the productive
sphere. In 2013, some 26.1% of the ARMM’s 132,119
inactive youth population (15–24 years old) were
unschooled or had not completed elementary level
education.89
79
During the transition period, priority will be given to
early childhood development programs under which
formal or skills/competency-based training through the
Community Learning Centers are being built near
Balik Eskwela program and other programs for out-of-
elementary schools in remote areas of the ARMM.
school youth, including the Department of Education’s
Alternative Learning System (ALS), the Abot-Alam
Similar initiatives that will provide platforms for skills
program, technical-vocational training provided by
development to transform small business ideas into
TESDA and accredited service providers. Job training and
reality among the entrepreneurial adults should be
apprenticeship schemes in private companies could also
supported in the Bangsamoro. Innovations that combine
support this objective.
adult literacy, entrepreneurial skills development, and
business mentorship will target the entrepreneurial and
The content of existing technical-vocational and skills
the vulnerable adults, particularly women. Completion
development modules will need to be reviewed to
of the training program would give trainees eligibility to
address the unique economic and political landscape of
apply for a small loan to start a business.
the post-conflict Bangsamoro and the growing concern
about the apparent mismatch between demand in the
A tie-up on the adult literacy program and the DSWD’s
private sector and the supply of skills. The problem is not
Sustainable Livelihood Program, which provides two-
peculiar to the Bangsamoro; TESDA figures for the whole
track training for micro-enterprise development and
country show that in 2008 and 2009, only 28.5% of
employment, is useful. “On-air radio” adult literacy
TESDA scholars were absorbed into the labor force after
programs have also proved useful. The Magbassa Kita
graduation.
Foundation, Inc. provides a three-month literacy and
numeracy course for illiterate adults that incorporates
B.1.2. Intensifying Delivery of Literacy Programs in the
Bangsamoro
peaceful resolution of conflict in its lessons, under its
There are 319,815 illiterate adults90 in the ARMM—by
The Learning Livelihood for Food Security of the ARMM
itself a significant barrier to achieving the Millennium
Social Fund that provides community-based livelihood
Development Goals and the objective of Education for
and skills training for illiterate adult women can be
All. Improving adult literacy, especially among mothers,
replicated for scaling up in the Bangsamoro.
“Literacy for Peace and Development” (LIPAD) Project.
generates economic and social returns that can limit the
transmission of poverty from generation to generation.
Adult literacy programs in the Bangsamoro, especially in
the ARMM provinces, have thus far been uncoordinated
Improving adult literacy and child literacy and helping
and donor-dependent. A comprehensive assessment of
people better appreciate the value of education are
existing adult literacy programs, including a review of
associated with a wide range of beneficial results, from
instructional materials in the region, will therefore be
better nutrition to improved social trust and confidence.
necessary for the program to become part of the future
operational program of the Bangsamoro Government.
A number of existing initiatives by the Central
Government, donors, and CSOs can be supported to
push the agenda of promoting adult literacy in the
Bangsamoro. Through the ALS supported by ARMMBEAM (Basic
Education
Assistance
in Mindanao),
both teachers and parents can gain functional literacy
and learn livelihood skills. This is supplemented by
80
B.1.3. Improving Access to Basic Education for
Internally Displaced Children in Temporary
Schools, Evacuation Centers, and Camps
Improving access to basic education together with
supplemental provisions of medical, psychosocial, and
feeding programs, particularly for children in temporary
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schools such as in camps, would be key to any initial
access to basic education, both English and Arabic,
attempts at integrating IDPs into the mainstream national
and also IP education, in all sectors. The adoption of
education system.
the K-12 program in the national education system will
likely put an additional strain on the already stretched
According to the WFP-WB survey91 on IDPs in 2011, a
basic education in the Bangsamoro if the inadequacy
significant portion of IDP households with children six
of school inputs is not properly addressed. There are
to 12 years old missed attending elementary school at
not enough educational facilities with functional toilets,
least once a week (mainland: 36%; islands: 51%), mainly
electricity, and drinking water. There is a prevalence of
because of poor health (see Table 21).
under-qualified or unqualified teachers, and there is a
proliferation of “ghost teachers” and “ghost schools.”
In households that have experienced prolonged or
multiple cycles of displacements and which decide
Full-scale development of culture-sensitive instructional
to return home, special accreditation of learning for
materials, including textbooks, would not only address
returnees would be indispensable. Without it, school
the need to accommodate the cultural diversity of the
children may be forced to reenter the education system
Bangsamoro in the national educational system but also
at lower level because their prior learning would be
signal the start of a fundamental reform.
inadequate. Teachers and school administrators in camps
who have developed skills in multi-grade teaching may
Years of protracted conflict in the Bangsamoro have
also be given opportunities to engage in curriculum
disrupted schooling, with plausible consequences on
development.92
the supply side: rapid increase of incomplete schools,
B.1.4. Enhancing Access to Basic Education—English,
Arabic, and also IP Education—by
Improving School Facilities, Instructional
Materials, and Other Resource Factors
These
targeted
interventions
should
be
pursued
simultaneously with continuing efforts at improving
and emergence of schools that offer multi-grade classes,
at the primary level. Absence of complete primary
schools makes it impossible for children to finish primary
schooling in some Bangsamoro areas.
However, incomplete primary schools, rather than being
restricted, should be strengthened and made complete.
Table 21: Access to Education for Internally Displaced Persons (2011)
Mainland
Islands
% of IDP households with children 6–12 years old
67%
75%
% of IDP households with children attending
elementary schools
97%
93%
% of IDP households with children 6–12 years old
missing school for at least once in the last 6 months
(from survey period)
36%
51%
Top 3 reasons for missing school
• Sickness (58%)
• Sickness (74%)
• School is too far (19%)
• School is too far (57%)
• Children do not want to go (15%) • Cannot afford school (39%)
Source: WFP and WB (2011)
81
Table 22: Distribution of Elementary Schools by Type (SY 2013 and 2014)
Total No. of
Schools
Incomplete
Schools
Multi-Grade
Schools
Multi-Shift
Schools*
ARMM
2,210
32.9%
22.4%
2.1%
Mindanao (excluding
ARMM)
9,169
6.2%
36.3%
1.5%
38,689
8.4%
31.7%
3.3%
Philippines
Note: * Refers to both regular and SPED elementary schools
Source: DepEd-ARMM-EBEIS (SY 2013 and 2014)
This is in view of the school supply gap and the
Interventions to address the needs of multi-grade schools
diminished stock of human capital resulting from conflict
include adoption of a multi-grade curriculum that treats
and out-migration. Special accreditation would also be
subjects or courses as part of an integrated continuum of
important to facilitate ease of mobility of students across
discourse, school and classroom management processes
the education ladder and curtail non-completion among
that instill the value of peer collaboration and “self-study,”
learners.
availability of in-service teacher training/preparation,
multi-grade
teacher
recognition,
distribution
of
There is also an urgent need to deploy “community-
supplementary modular instructional or learning materials
based/resident teachers” who will be recruited from the
to facilitate flexible classroom organization and learning
local population based on some flexible arrangements
processes, assessment based on individual learner’s pace,
on competency to deliver the task assigned. Their
as well as involvement of families and community, all for
deployment
the purpose of fostering active learning among learners.
shall
be
matched
with
salary-based
incentives to compensate for the risks and hazards that
“community-based/resident teachers” will face once
A multi-grade class system, as an alternative delivery
deployed in far-flung or conflict-affected areas.
mechanism, provides learners a chance to resume
schooling after dropping out for various reasons, at
The perennial problem of deficiencies in school
any time possible, especially in a tenuous post-conflict
resources and the proliferation of IDP communities have
landscape. Multi-grade education has been practiced
prompted some schools to adopt multi-grade classes.
since the distant past in traditional Islamic schools in the
In most places, however, many multi-grade schools are
Bangsamoro, where it is seen as a more effective pedagogy
poorly equipped to implement multi-grade education, as
to promote the potentials of the learner and as a force that
they still unsuitably employ mono-grade curricula and
fosters community cooperation. In some madaris, elements
the teachers lack the needed preparation for effective
of multi-grade schooling still remain at its core of training
delivery of the pedagogy. Despite the low number of
so that the Department of Education’s current efforts at
multi-grade schools in the ARMM relative to the national
upgrading madaris education into the public education
average (see Table 22), the importance of learning from
system should accommodate this multi-grade system.
the previous experience of the Multi-Grade Program in
82
Philippine Education, especially in the context of conflict-
The Bangsamoro Parliament shall enact a Bangsamoro
affected areas where uneven distribution of pupils in a
Educational System that will be responsive to the needs,
classroom is the norm, will be useful.
aspirations of the Bangsamoro.
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B.1.5. Supporting Efforts at Improving Basic School
Data Generation and Monitoring Capability of
the Bangsamoro Transition Government
However, only 5.3% of its population in 2010 had college
It will be necessary to have a full accounting of the
administration, business administration, entrepreneurship
number and locations of schools and an assessment
and
of the quality of facilities and instructional materials
community
and programs, including the curricula of ibtidaiya
possibly research and development to staff the regional
(elementary school) and thanawiya (secondary school)
government, economy and civil society. Considering the
in MILF communities (BCT) and catchment areas before
urgent need to recruit such personnel, especially among
these are accredited to the national educational system.
the local population, it will be useful to experiment with
This will be pursued simultaneously with the ongoing
more flexible arrangements that emphasize competency for
efforts to map out the state of educational facilities and
the tasks to be assigned.
degrees. Deliberate efforts will be needed across a wide
range of subjects, including teacher-training, public
accounting,
health
development,
and
social-welfare
agricultural
services,
extension
and
status of teachers, principals, and students under the
incumbent regional government, in order to weed out
As part of the revitalization of tertiary education system,
fictitious schools and underperforming schools and
issues on allocative efficiency, quality, access, and
“ghost teachers” and “ghost students.”
relevance are present and must be dealt with, as the region
gears toward calls for modernizing its higher education
Over the medium term, the Bangsamoro Government
institutions attuned to the demands and needs of the
shall deepen the implementation of universal access
regional and global economies.
to basic education and create a mass of educated
reformists.
B.1.7. Upgrading Social Services to Encourage Skilled
Workers to Return
B.1.6. Building a Critical Mass of Educated Human
Resources in the Bangsamoro
Skilled and healthy workers have a high propensity to
Building a healthy, educated, and skilled resource base
diaspora of such workers from the Bangsamoro. A solution
in the Bangsamoro is a key factor in accelerating long-
is to encourage them to return because they will be needed
term economic growth, as having improved human
in the region’s socioeconomic development, including the
capital tends to engender knowledge spillover and
delivery of quality basic education and health services. The
innovation. Toward that goal, it will be essential to
challenge is to provide them with employment, livelihood,
create a critical mass of educated people in the medium
and business opportunities, together with quality education
term. Providing scholarships for higher education,
and health services for them and their families.
escape a conflict situation,94 and so there has been a
domestic and international, and training in executive
programs and specialized technical skills would be a
In the medium term, the Bangsamoro Government will
major step in institution-building.
invest in upgrading the education and health facilities
as well as the deployment of skilled health workers and
The Bangsamoro also needs to revitalize its tertiary
teachers. Private-sector sponsorships of some components
education system to enhance its human capital stock
of educational facilities or services, through the “Adopt-
and to generate a human resource base that can adapt
a-School Program,” can be a congenial arrangement to
and compete in whatever fields or industry they are
encourage the participation of the private sector in meeting
immersed in the Bangsamoro. There are six universities
the social objective of education for all. Similar efforts
with
State
shall be undertaken in the health sector, such as “Adopt-
University, Notre Dame University, and the University of
a-Hospital Program” or “Adopt-a-Health-Center Program,”
Southern Mindanao—and 93 colleges and academies.93
especially in remote areas in the Bangsamoro.
three
satellite
campuses—Mindanao
83
B.1.8. Strengthening the Madrasah Educational System,
and also IP Education
services is a paramount concern of the Bangsamoro in
The madrasah system, and also the IP educational system,
lessons learned from the previous experience of the ARG95
will be strengthened to encourage more Bangsamoro to
with the following essential measures to be undertaken by
enroll and to ensure that they gain the knowledge and skills
the Bangsamoro Ministry of Education: (a) strengthening
that will enable them to be productively employed.
social
the medium to the long term. The BDP can build on the
accountability
through
citizen
engagement
in
school management in collaboration with government and
A review of curricula is necessary to reflect both the
NGOs to emphasize the evolving parental choice and civil
educational policies of the Central Government and
the
society participation in terms of school choice; (b) adopting
Bangsamoro Government. There shall be accreditation of
results/performance-based budgeting and accountability
madaris and schools offering IP education, as well as training
management to foster fiscal discipline combined with
of teachers and professionalization of asatidz (teachers)
transparency of targets, budget, and performance; and
not only in traditional fields of learning but also in English
(c) ensuring integration of education budget to align
and technical and science courses, in order to create an
education priorities with policy or plans. The third item
environment conducive to acquiring technical and scientific
will be extremely useful in encouraging a fiscal culture of
proficiency.
predictability of the budgeting framework.
The Bangsamoro Government shall adopt a system of
B.2. Health
education consistent with the culture, traditions, and
The strategic thrust of the health sector during the transition
customs of the Bangsamoro. As such, it shall examine the
period is to expand the implementation of universal quality
present curricula in order to suit the educational needs of
healthcare, starting in areas most disrupted by conflict and
the Bangsamoro.
in areas where the most vulnerable are clustered. Focusing
on these areas would have a significant impact on regional
B.1.9. Scaling Up Technical and Vocational Skills
Development
health indicators.
Courses oriented toward developing vocational and other
skills will be offered based on the requirements of employers
inside and outside the Bangsamoro area. Partnerships with
B.2.1. Improving Access to Quality Healthcare
Services in Camps, Key Secondary Cities, and
Isolated Communities
the private sector will be formed in designing/updating
Coordinated and implemented by a Project Task Force, the
vocational and technical curricula and creating internship
strategy can be achieved through:
or apprenticeship arrangements in response to the specific
human capital needs of companies in a new politico-
a. Health caravan for the Bangsamoro. This will be
economic environment. Special adult education programs
a medical and dental outreach program consisting
will be undertaken, focusing on areas of the Bangsamoro
of, but not limited to: consultations; minor surgical
with a high incidence of adult illiteracy, such as areas in the
procedures; mobile diagnostic clinics (e.g., in buses
island provinces. Similarly, programs geared at maintaining
and boats); health education and promotion of proper
and increasing school enrollment levels and special training
nutrition; healthy lifestyle and noncommunicable
programs for out-of-school youth will be launched.
diseases prevention; oral health/hygiene promotion;
B.1.10 Institutional Strengthening in the Delivery of
Educational Services
Institutional
strengthening
to
create
an
enabling
environment for effective and efficient delivery of education
84
information on PhilHealth benefits; cancer prevention;
water, sanitation, and hygiene; campaign against
smoking and chronic respiratory diseases; campaign
against infectious diseases; and promoting program for
family planning and responsible parenthood.
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vaccines to rural health units (RHUs). This will
B.2.2. Supporting Efforts at Improving Basic Health
Data Generation and Monitoring Capability
supplement current allocations in Bangsamoro areas
Continued efforts in mapping out the location, the
with the greatest need. Some 87,606 children (0-2
quantity and quality of health infrastructure, and status
years old) in the ARMM have not received any basic
of medical personnel will be pursued to ascertain the
vaccination to meet the 2013 national percentage-
true state of affairs in the delivery of quality health
average.
services in the Bangsamoro. A comprehensive needs-
b. Provision of equipment, devices, medicines, and
assessment of health facilities and personnel is also
c. PhilHealth
beneficiary
awareness
campaign.
necessary.
Information on PhilHealth enrollment and benefits,
including existing health facilities, will be provided to
communities. In the ARMM alone, 106,419 households
have no form of health insurance coverage whatsoever.
Their needs must be addressed if the region is to attain
the 2013 national percentage-average.96
The poorest of the poor shall be reached through
PhilHealth’s Indigent Program. MILF members and their
communities most in need will also be sought out in
line with the universal healthcare policy.
will connect the field health workers to their rural health
physicians and, if necessary, to physicians in cities
elsewhere in the Philippines via telecommunications.
f. Media and information campaign on all health
programs. A Bangsamoro-wide information campaign
popularizing the various health programs that can be
availed of in all RHUs and Barangay Health Stations
(BHSs) will be launched in partnership with the media.
This demand generation activity will be led by a Project
Health Team and will ensure that the Bangsamoro
themselves
of
health
services,
especially during the health caravan.
g. Public-Private Partnerships. Private sector participation
in Bangsamoro public sector health programs could be
explored especially in areas related to strengthening
public health services, maternal and child healthcare
and nutrition, educating the public, and provision of
infrastructure and facilities.
on a Bangsamoro Health Takaful, a Shari’ah-compliant
B.2.4. Scaling Up the Existing CCT and CDD and
Other Social Protection Programs in the
Bangsamoro
Existing programs that focus on improving health and
education outcomes in the Bangsamoro, including the
e. Launching of the Bangsamoro Telehealth Project. This
avail
An analytical and feasibility study will be conducted
social health insurance system.
d. Distribution of sponsored PhilHealth insurance cards.
constituents
B.2.3. Conducting Analytical and/or Feasibility Study
on the Bangsamoro Social Health Insurance
System
CCT and the CDD programs under the ARMM Social
Fund
Program (ASFP) and the Mindanao Trust Fund-
Reconstruction and Development Program (MTF-RDP),
will be accelerated and their coverage expanded.
There is need also to continue programs for persons with
disabilities and programs for the elderly, and healing
programs for traumatized women and children from
armed conflict and domestic abuse.
Implementation
issues related to under-reporting among victims of
domestic abuse and disability should be seriously
assessed
to
address
bottlenecks,
as are non-
accreditation of support health facilities for PhilHealth,
and wide use of PhilHealth cards as collateral for
small loans by
CCT beneficiaries. Establishment of
a residential care facility for the elderly, similar to
the current program of DSWD, may not be culturally
feasible, as it might overcrowd the existing informal
social arrangement such as tabang or kapamamagawida
where local culture values filial home care of the elderly
and shuns families who commit the aged to externallysponsored residential care facilities.
85
In the medium term, the Bangsamoro Government will
Establishment of a Shari’ah-compliant social health
need to deepen the implementation of universal access to
insurance program provider, as an attached agency of the
healthcare, taking into account the cultural diversity and
Bangsamoro Ministry of Health, will be explored based on
sensitivity in the provision of quality healthcare.
the findings of the analytical study conducted during the
B.2.5. Strengthening the Human Resource Capacity
Competencies of health service providers in the Bangsamoro,
especially in maternal, newborn, and child health and
nutrition (MNCHN), will be upgraded to enable them to
provide quality health services. The scholarships and return
service contracts described above will be continued. In
addition, there will be management training for health
modules,
including
modules
on
good
governance,
transparency, accountability, leadership, and management, as
well as moral values transformation.
B.2.6. Upgrading Health Facilities and Expanding
PhilHealth Accreditation of Hospitals
To build on findings of the comprehensive needs-assessment
of health facilities that will be carried out during the
transition years, the Health Facility Enhancement Program
(HFEP) of the Central Government will be tapped to upgrade
existing health facilities. Equipment, devices, supplies, drugs
and medicine will also need to be provided and replenished
regularly.
B.2.7. Intensifying the Referral System of Healthcare
Services in Remote Areas both in the Mainland
and in Island Provinces
transition years.
B.3. Water, Sanitation and Hygiene (WaSH)
B.3.1. Adopting a Governance-Oriented Approach to
WaSH
Water resources in the Bangsamoro areas are limited
and at risk, and have to be managed for the good of
everyone.
Water
supply,
sanitation
provision,
and
hygiene promotion will need to be a priority component
of poverty reduction initiatives and to be treated as a
service.97
a. Decentralization and subsidiarity. Consistent with
the spirit of autonomy that underpins the creation
of the Bangsamoro, the delivery and management of
WaSH will have to be based on decentralization and
subsidiarity, and be supportive of good governance.
WaSH service delivery and management will need
to involve providers and other stakeholders at the
lowest appropriate levels.
b.Participation. It is essential to promote systematic
participation
and
enhanced
accountability,
responsiveness and transparency of Bangsamoro
This will build on the gains of the Bangsamoro “telehealth”
governance bodies in the provision of WaSH. A
initiative in order to address the shortage of physicians in
governance-oriented approach to WaSH entails
hard-to-reach areas, particularly in the rural health units.
systematic participation of many stakeholders in
HFEP resources will be tapped for the provision of effective
different roles, such as communities, various levels
telecommunications equipment. The project could be
of local governments, regional bodies, national
implemented in collaboration with the National Telehealth
agencies, CSOs, the private sector, and international
Center of the University of the Philippines, Manila.
partners. The involvement of these actors and
B.2.8. Expansion of Social Health Insurance System
Implementation of the government-sponsored “Sajahatra
stakeholders will have to be managed, and the
Bangsamoro Government’s capacity to do so will
have to be strengthened.
Philhealth” will need to be intensified. Efforts will be needed
86
to provide PhilHealth cards to all eligible beneficiaries, and
c. Standards. Provision of WaSH services in the
information provided on services (including at point-of-care
Bangsamoro region should be consistent with
services), and PhilHealth focal points stationed in hospitals.
Philippine National Standards for Water Supply
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and Sanitation Facilities. Any water service intervention
b. WaSH Development Roadmap. An overall roadmap for
should be at Level 2, at the minimum, to avoid the
WaSH in each locality will be the basis for initiatives
perennial problem of the community’s inability to sustain
that build on one another progressively to achieve
the operations and maintenance of a Level 1 water
the WaSH vision and targets. The roadmap has to be
system.
based on data, technically sound, and developed in a
participatory manner. Essential to these roadmaps are
In addition, interventions should be compliant with the
data on water demand98 and supply. Subsequent WaSH
Philippine National Standards for Drinking Water,
projects will have to use the local roadmap as reference
the standards on appropriate water and sanitation
and will be supportive of the set directions and targets.
technology,
plumbing,
The Bangsamoro Government will need to develop a
household water treatment and storage, and other criteria
regional framework or roadmap to provide strategic
and benchmarks provided by law. Not achievable
guidance, targets, and support to the local units with
overnight,
respect to WaSH planning.
those
these
related
are
to
domestic
standards
to
which
WaSH
stakeholders in the Bangsamoro should aspire.
c.Imputing value to WaSH services. A progressive
d.Database. An inventory of WaSH service facilities,
approach to WaSH also means helping communities
implemented as early as possible during the Bangsamoro
regard it as a valued service. By learning to value
transition, is crucial to ascertain the existing condition of
WaSH, households will be discouraged from engaging
supply and sanitation, and determine actual demand.
in
B.3.2. Adopting Graduated and Integrated Approaches
to WaSH Development Within Integrated Water
Resource Management and Climate Change
Adaptation
a. Alignment with broader frameworks. Comprehensive
delivery and management of WaSH in the Bangsamoro
will need to be approached in a graduated manner and in
a way consistent with the frameworks of Integrated Water
Resources Management (IWRM) and climate change
adaptation.
WaSH service delivery cannot be treated in isolation
from the other natural resources in the locality such
as watersheds, water bodies, and coastal ecosystems.
WaSH initiatives should be designed with the ecosystems
in mind and should not be pursued at their expense.
WaSH development also needs to factor in the economy
by taking note of the water requirements of economic
activities such as agriculture, energy and industry, and
the pressures of pollution-causing economic activities.
Extreme weather conditions and other uncertainties
created by climate change will require that WaSH
initiatives have to be climate-proofed.
wasteful
consumption
and
pollution-causing
activities. Enough resources can be generated locally
for the operations and maintenance of WaSH systems.
Over time, communities can be assisted through
a variety of strategies that include different forms
of payment (such as payment in kind, in labor or
skills provision, with connection charges phased in
gradually; flexible payment terms), minimal charges
that are fair and affordable, among others. A privatepublic partnership shall be explored to encourage
entrepreneurs to provide suitable and acceptable
technologies, such as water services using mobile
filtering technologies, among others.
Service providers should be prepared to reduce the
indirect costs of water, even by initially subsidizing
low-income households and other vulnerable groups to
make sure that no one is denied access. A minimal tariff
may be adopted, at least to sustain the operations and
maintenance of the system, while service providers can
take advantage of scale to cover the capital expenditure.
Setting the appropriate tariff for WaSH will need to
consider affordability and determine the viability gap to
be subsidized, so as not to hinder household ability to
procure other essential goods and services.99
87
Regulatory bodies would need to ensure that
change at the household level. The Bangsamoro
such practices as profiteering and price-fixing
Government may encourage households to invest in
are avoided. The commitment to keep WaSH
improved water supply and sanitary toilets in exchange
affordable also entails selection of appropriate
for household durable goods such as solar power
technologies and other resources, from construction/
packages.
implementation, operation and maintenance to
future growth. The selection will also need to
B.3.4. WaSH in Emergency Response
In more recent times the ability of responders from
consider climate change resilience.
government, civil society, and international partners
d.Capacity-building. The orientation of the “Protect,
to provide WaSH support in emergency situations
(Ruggie
has improved in relative terms with the creation of
Framework) shall be promoted. In addition, the
coordinating mechanisms, better information-sharing,
capacity of the regulatory and implementing bodies
more targeted responses, and the use of the SPHERE
at different levels will have to be enhanced in terms
standards.
Respect,
and
Remedy”
Framework
of their ability to: (1) carry out technical functions or
tasks, (2) commit and engage, (3) relate and attract
Appropriate WaSH facilities are important to ensure that
resources and support, (4) continuously improve
women and children are not subjected to sexual and
(adapt and self-renew), and (5) balance diversity and
other forms of violence in emergency settings. A state
coherence.
of readiness to provide WaSH emergency response will
100
have to be maintained and measures taken to address
persistent issues encountered in more recent dislocations
B.3.3. Promoting Behavior Change
Community groups and CSOs with a WaSH mandate
will be encouraged to initiate or respond positively to
engagements with regional and local governments and
such as variability in the emergency WaSH kits provided
by different responders.
conduct resource inventory; identify priorities, service
B.4. Housing (Sustainable Bangsamoro Settlements
Program and Special Housing Needs Assistance
Package)
levels, and options; determine technology, human,
A Sustainable Bangsamoro Settlements Program with a
financial and other resource requirements; monitor and
Special Housing Needs Assistance Package (SHNAP) will
evaluate the implementation of WaSH responses and
be launched to include the following in the short term:
service providers. To be developed are the abilities to:
communicate the results of the monitoring and evaluation.
B.4.1. Priority Housing for IDPs
Local leaders (religious, traditional, and community), the
media, and educational institutions and other culturebearing bodies can make significant contributions to
prevent or modify unhelpful behavior and introduce
better ones. The Ulamah in particular can help Muslims
in the Bangsamoro better appreciate the connections
between
purity/cleanliness
and
worship
and
thus
improve WaSH practices. These local leaders will need
to be supported in their information, education, and
communication efforts. Incentive designs and schemes
are powerful and effective tools to influence behavioral
88
Particular
focus
will
need
to
be
devoted
to
noncombatants who were displaced by the armed
conflict. In areas where growth and development
are hampered by internal displacement, IDPs can be
“bridges” of peace in the Bangsamoro, given their
extensive family ties and connection with groups in
conflict with the government. Conversely, when IDPs
feel neglected, are without stable living conditions and
isolated from mainstream society, they can be multipliers
of social discontent.101 Community housing programs
could be undertaken where suitable and appropriate.
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B.4.2. Integrated Return and Development Programs for the Economically Displaced Bangsamoro (IRDPEDB)
the medium and the long term.
The effects of the lack of economic programs and good
development of their own homeland. Also, it will also
governance are manifold in terms of insecurity and the loss
ensure that the dividends of peace are fairly distributed
of moral ascendancy. They transfuse from one family to a
among the various residents of the Bangsamoro region,
larger family---the clan—or from one family to other families
given their active participation in the development
in the community. Further, violence is also vulnerable due
process.
This will aid the
Bangsamoro to realize their full potential and fulfill
their collective creativity
as they contribute to the
to scarcity of economic opportunities where the people vie
against one another in every way to get hold of the limited
As the situation of the Bangsamoro evolves affirmatively,
resources in the area.
the BDP recognizes the imperative need to address
surmountable
issues
and
concerns
affecting
the
One of the effects is the influx of Bangsamoro people in
economically displaced Bangsamoro people. They have
the various part of the metropolitan of Luzon and Visayas
moved from their place and dwelled susceptibly outside
to find a living is caused by the dismal economic condition
the Bangsamoro area. The Bangsamoro Government shall
and the absence of livelihood opportunities in the different
implement integrated and sustainable socioeconomic
localities of the Bangsamoro. It has been exacerbated the
programs and projects for them.
people living condition when most of these people engaged
in hazardous business just to generate income if not to
B.4.3. Housing Finance
survive. Some of them are caught by committing crimes
Alternative funds will be created that will spur housing
which brought them mostly at several jails in Metro Manila.
production. A financing window will be made available
to low-income families, aside from regular housing
This
unwelcome
condition
that
proliferate
in
the
programs of the national government, such as the
Bangsamoro area contributes to unproductive growth in the
Community Mortgage Programs, the NHFMC or Pag-IBIG
region. It has also created more dissatisfaction in life which
Fund, and the like. The participation of NGOs shall also
made them coursed to an aberrated path from focusing
be expanded in socialized housing, building of strong
on the proper utilization of potential resources they have
public-private partnership, and increasing the capacity
in their place especially on agriculture and fishery and
of low-income earners. Studies and consultations will be
disappearance of workforce in the likely zones of economic
made to provide incentives and explore ways to get tax
progress. The number of these Bangsamoro migrants will
and fiscal incentives for developers. Alternative tenurial
continue to multiply for as long as the economic fortune
arrangements such as lease or usufruct will also be
of the region is not drastically altered. Tragic stories of the
adopted to reduce the cost of land.
Bangsamoro living in urban ghettos under dismal conditions
will continue to increase if the conducive economic
In the medium term, the program will support the
environment for them to stay in their communities of origin
following:
is not provided.
B.4.4. Tenure Security
Similarly, a policy of trying to entice Bangsamoro to return
A considerable number of families do not live on their
to their community of origin can only be effective if the
own lands. This situation can cause land disputes that
appropriate economic conditions are put in place. For this
can render more people land-insecure. Local Housing
reason, the Bangsamoro Government, through the proper
Boards shall be created in every LGU and serve as the
implementation of the BDP, will ensure the installation
governing bodies in planning and implementing housing
of the appropriate environment for the Bangsamoro in
programs especially for Bangsamoro IDPs.
89
B.4.5. Site Development
Specific focus is also needed on improving prevention
Attention will be given to identification of sites for
settlement development. This undertaking will need
to take into consideration the distance between the
areas where families live and the areas of livelihood.
The Comprehensive Land Use Plans of LGUs need to
be completed to identify buildable lands for settlement
development.
In
building
sustainable
communities
through rational utilization of land, regulations on
developing residential subdivision projects for formal
and informal settlers are linked to the enforcement
of comprehensive land use plans that consider a
combination of functions and amenities based on
environmental standards. Ultimately, these sites will need
to be chosen and designed to sustainable by providing
minimum service standards in light of the global climate
change phenomenon.
consideration. Changes in climate may result in: (a)
water shortages in settlements; (b) declining air and water
quality; (c) reduced hydropower generation potentials;
and (d) disruption of settlements, commerce, and transport
due to flooding, among others. If settlement areas are
haphazardly selected and/or developed, there potentials
arise for population migrations and loss of property and
lives.
In the short term, the Bangsamoro Government will:
a.Organize awareness campaigns and information
drives in the media, LGUs, schools, etc., on laws
on violence against women and children and on
the available services and protection mechanisms;
b. Conduct gender training using modules that deal
with sectoral issues and themes, e.g., GBV,
trafficking, illegal recruitment;
c. Establish and strengthen the GBV referral pathway
to address GBV cases by engaging the traditional
mechanisms for dispute resolution as well as
through the activation and functionalization of local
d.Improve access of women and girls to local
protection mechanisms.
In the medium term, strategies will include:
a. Developing comprehensive human rights education
curriculum in all levels of education;
b. Reviewing existing traditions and cultural practices
that violate women’s rights and promote the
meaningful representation of women;
c. Ensuring the implementation of GAD budgeting;
B.5. Gender
the
Bangsamoro
Government
becomes
more
established, another shift that will need to be considered
is the development of its humanitarian action capabilities
to enable it to lead and manage emergency responses.
Where in the past, civil society, international partners and
the national government were more involved, the recent
experiences of LGUs in other regions show that local
officials have taken the leadership role for the better in
handling emergency situations.
90
gender or disability.
government protection mechanisms; and
The effects of climate change shall also be taken into
As
and response to GBV and discrimination based on
d. Providing opportunities and establishing structures
for the active participation of women in conflict
prevention and resolution; and
e. Developing comprehensive support programs and
services to address the needs of women in conflictaffected and post-conflict areas, such as sustained
protection, increased access to justice and healing,
rehabilitation, and development.
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Table 23 presents the list of priority social programs.
Table 23: Priority Social Programs
Objectives
WaSH
Priority Programs
Components
Water, Sanitation and Hygiene (WaSH) • Scaled-up access to water and sanitation facilities through
adoption of graduated and integrated approaches to
WaSH development
Increase access to quality
health services and reduce risk
of conflict reversal
Health
Improve access to quality
education and reduce risk
of conflict reversal, toward
creating a skilled and able
workforce in the Bangsamoro
Education
Increase % of population with
secure housing tenure
Sustainable Bangsamoro Settlements
Provide safety nets and
increase access to services for
vulnerable groups
Protective Services
•
•
•
•
•
Provision of PhilHealth cards
Mass immunization and feeding programs
Health caravans
Upgrading of health facilities
Creative delivery mechanisms: support trainings for BIAF
medics and traditional healers
• Technical and vocational skills training including
entrepreneurship
• Functional literacy programs for out-of-school and inactive
youth and illiterate adults
• Private sector apprenticeship for OSY
• Curriculum development and review of madaris system
(ibtidaiyah, thanawiyah, and kulliyah)
• Supply-side inputs for primary and secondary education
• Modified “GI Bill-Veterans Benefit Packages” for families of
MILF combatants
• Mobilization of alternative teachers
• Special Housing Needs Assistance Package for IDPs
• PPP for socialized housing
• Policy reform on land rights, housing tenure, security and
economically displaced Bangsamoro
• Packages for vulnerable groups: senior citizens, PWDs,
women, widows, youth, orphans, etc.
91
NOTES
80
81
82
83
84
85
86
87
88
89
90
91
92
93
94
95
96
97
98
99
100
101
92
The World Bank (2005).
Human Development Network and United Nations Development Programme (2013).
ARMM Regional Development Plan.
Department of Health-Field Health Services Information System (2012).
Philippine Statitics Authority-National Demographic and Health Survey (2013).
Ibid.
Department of Social Welfare and Development data for 2014.
A more thorough assessment of housing needs in the Bangsamoro is crucial to account for the informal sector including those displaced by conflict.
Collier (2007).
Philippine Statistics Authority-Labor Force Survey (2013).
Philippine Statistics Authority-Census on Population and Housing (2010). Further, 715,173 adults who did not finish elementary school, including those
without education. Magbassa Kita Foundation estimates a total 600,000 adult illiterates in the ARMM.
The World Bank and World Food Programme Survey Data (2011). Areas covered: mainland (Lanao del Norte, North Cotabato, Sultan Kudarat, Lanao
del Sur, Maguindanao and Cotabato City); islands (Tawi-Tawi, Sulu, Basilan)
Buckland (2006).
Commission on Higher Education raw data as of September 2014.
Collier (2007).
The World Bank and the Australian Department of Foreign Affairs and Trade (2013).
Extrapolated from the 2008 National Health and Demographic Survey data and 2010 Census of Population and Household data. Percentage of total
household population with health insurance coverage (Philippines: 42.0%, ARMM: 17.5%); and percentage of total population of women aged 15 to 49
years with health insurance coverage (Philippines: 42.8%, ARMM: 15.7%).
In sanitation, the notion of service involves not just government providing free facilities to each household but government, through policies, programs,
projects or other measures, creates an environment in which households can easily access facilities that can also be provided by the private sector.
Water demand is influenced by the following factors: (a) service levels to be implemented; (b) size of the community; (c) standard of living of the
populace; (d) quantity and quality of water available in the area; (e) water tariffs that need to be shouldered by the consumers; (f) climatological
conditions; and (g) habits and manners of water usage by the people. See the World Bank (2012).
A related standard is that expenses for water and sanitation should not exceed 5% of the disposable income of a poor household.
Baser and Morgan (2008).
Mindanao Development Authority, Autonomous Region in Muslim Mindanao, and United Nations Development Programme (2006).
Environment and Natural Resources
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10
Environment and
Natural Resources
93
10
Environment and
Natural Resources
A. Context: Rich but Fragile Natural
Resources and Ecological Heritage
Equitable and sustainable development is at the heart of the
The environment is at the center of both the economy
BBL. Recognizing the rich environmental heritage of the
and the cultural heritage of the Bangsamoro. Many of its
Bangsamoro, the BBL commits the Bangsamoro Government
peoples identify deeply with their environment and are
to planning development “taking into consideration the
named after aspects of it—the Maranaw are the “people of
natural resources that are available for its use and for the
the lake,” the Tausug are the“people of the current,” the
use of future generations.”
In this regard, the Bangsamoro
Yakan are the “people of the hill,” and Maguindanaoans
Government “shall develop a comprehensive framework for
are the “people of the flooded plain.” The Bangsamoro’s
sustainable development through the proper conservation,
environment is also characterized by its rich assemblage
utilization and development of natural resources.”
The
of varied species and ecosystems. It is home to 10
success of this framework will be determined largely by such
of the 128 Key Biodiversity Areas in the Philippines,
factors as an enabling environment, availability of capable
including areas of global ecological significance, whose
and responsive institutions, a competent bureaucracy
conservation is essential for the very survival of the
manned by efficient and effective personnel, and an
Bangsamoro people. With AFF accounting for 63.5% of
enlightened and proactive constituency.
output (2009–2012 average) in the ARMM, achieving
102
103
sustainable development and growth is intrinsically linked
To manage the competing dynamics of social justice,
to having a vibrant and sustainable environment.
environmental conservation and economic development, an
intergovernmental Bangsamoro Sustainable Development
However, such activities as deforestation, conversion
Board (BSDB) will be established to ensure harmonization
of forest lands to agricultural areas, illegal fishing,
of environment and development and formulate common
and irresponsible mining and extraction are rapidly
environmental objectives between the Central Government
undermining the potential for sustainable development.
and the Bangsamoro Government.
Poor planning and weak governance are adding to this
critical situation, as is climate change, which is threatening
This chapter sets out the current context, strategic goal,
programs, and interventions to achieve this vision and
translate the potential of the Bangsamoro’s physical assets
94
to render the Bangsamoro people more vulnerable.
A.1. Forests and Watersheds
and natural capital into wealth for the wellbeing of its
Approximately 665,000 hectares, about half of the total
people, while forestalling recurrent costs from external
BCT land area, is legally classified as forestland and
threats like natural hazards and climate change.
inalienable. Of this, 35% is under the National Integrated
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Protected Areas System (NIPAS), 24% is under some
period from 2003 to 2010 was still 46,900 hectares,105
form of management agreement, and the rest is open
which was also considered true for the BCT. The national
access. Data from the 2012 Philippine Forestry Statistics
reforestation average rate for the said period increased
show 45% of BCT forestlands have forest cover.
significantly from 30,000 ha/year to around 250,000 ha/
year, which was assumed to extend also to the BCT.
While this reflects a net increase in forest cover from
2003 to 2010 because of an increase in open canopy
As shown in Table 25, the BCT has four proclaimed
forests and mangrove areas, the data also reveal a
watersheds: (a) Lake Lanao (180,460 ha) is a source of
significant decrease in closed canopy forests for the same
hydroelectric power and domestic water for Lanao
period. As forest cover is depleted, biodiversity is also
del Sur and adjacent towns; (b) Kabulnan (4,726 ha)
decimated. Although poorly documented, deforestation
provides irrigation and domestic water supply; (c) South
and degradation of forests—not only in the BCT but
Upi (1,894 ha) provides domestic water supply; and
across Mindanao—is attributed to various factors, such as
(d) Dimapatoy (3,765 ha) provides potable water for
direct damages caused by armed conflict, illegal logging,
Cotabato City and adjacent municipalities.106
encroachment by IDPs seeking temporary shelter, and
land conversion. Other factors include weak enforcement
These watersheds face increasing incidence of drought
of laws and limited capacity to monitor sustainable use
and clogging of waterways and irrigation canals due to
of forestlands due to manpower constraints (i.e., there is
siltation and water hyacinth infestation. Another issue
only one ranger for every 1,820 ha).
is water pollution from agriculture and industry. Further
104
pressures come from resettlement in watershed areas,
The Bangsamoro forests are home to many indigenous
poor and uncoordinated administration of watersheds
species of fauna and flora. The reduction in primary
by national and local government agencies, lack of
forests puts a severe stress on preserving them as part of
employment opportunities in the lowlands, and improper
a balanced ecology. It also has a significant impact on
waste disposal.
watershed areas and their ability to provide water for
A.2. Aquatic Resources
local communities and to regulate water levels. Forest
cover data (see Table 24) may seem to negate the forest
The Bangsamoro has rich and significant marine and
cover observation but the Forest Management Bureau
freshwater resources that are closely linked to the
(FMB) confirms that the annual rate of deforestation in the
sustenance of its people and the economic development
Table 24: Forest Cover Change in ARMM in Hectares (2003–2010)
Province
Land Area
Total Forestland
Basilan
132,723
Lanao del Sur
Forest Cover
Change in Forest Cover (2003–2010)
2003
2010
Ha
%
47,149
16,505
21,320
4,815
29.2
387,289
254,154
174,745
150,151
(24,594)
(14.1)
Maguindanao
504,760
198,138
16,354
52,351
35,997
220.1
Sulu
160,040
112,353
24,701
30,839
6,138
24.8
Tawi-Tawi
108,740
53,357
18,041
47,233
29,192
161.8
665,151
250,346
301,894
51,548
20.6
ARMM Total
1,293,552
Source: DENR-FMB and Philippine Forestry Statistics (2011 and 2012)
95
Table 25: Proclaimed Watersheds in ARMM (2012)
Watershed
Legal Basis
Location
Land Area (ha.)
Major Use
Lake Lanao
Proclamation No. 871
(1992)
All municipalities and
city within Lake Lanao
watershed
18,460
Hydroelectric power,
domestic water source for
Lanao del Sur and adjacent
towns
Kabulnan
Proclamation No. 06
(1992)
Salman and Saniag,
Municipality
of Ampatuan,
Maguindanao
4,726
Irrigation under the KIADP
program and domestic
water supply source for the
province
South Upi
Proclamation No. 65
(1987)
Municipality of Upi,
Maguindanao
1,894
Domestic water supply
source
Dimapatoy
Proclamation No. 18
(2001)
Municipalities of Datu
Odin Sinsuat and North
Upi, Maguindanao
3,765
Potable water supply
source for Cotabato City
and adjacent municipalities
Source: DENR-ARMM (2012)
of the region and the Philippines as a whole.
species such as the Philippine eagle, the Philippine duck,
Environmental degradation is significantly affecting the
and the Philippine crocodile. In view of this, 43,900 ha of
productive capacities of these aquatic resources with
Ligawasan Marsh has been declared a Game Refuge and
a disproportionate impact on the poorest segments of
Bird Sanctuary and is globally recognized as an Important
society who rely on them for survival.
Bird Area.
A.2.1. Freshwater Resources
These water bodies are suffering from increasing siltation
The Lake Lanao, the largest freshwater lake in the
caused by soil erosion and from pollution and declining
country, and the only ancient lake in Southeast Asia,
biodiversity.
is the biggest protected area in the Bangsamoro. It is a
conversion in the upper watersheds; regulated river
biodiversity site of global significance, being home to 18
flow because of dams constructed primarily for irrigation
endemic species of freshwater fish and supporting a large
and hydropower plants; conversion of marsh areas to
number of bird species.
agriculture and fishponds; resettlement along the coastal
Deforestation
and
large-scale
forestland
areas; and charcoal-making have led to degradation of
It is also critical to hydroelectric power production,
the BCT’s aquatic resources, threatening their continued
supplying 65% of total energy in Mindanao.107 Ironically,
capability to sustain the Bangsamoro.
the host province of Lanao del Sur has the highest
poverty incidence in the Philippines.108 This indicates
Although water demand is projected to remain within the
that the benefits of the BCT’s natural resources have not
supply capacity of the Mindanao River, environmental
extended to its people.
degradation may affect the recharge potential of the
region’s groundwater reservoirs and watersheds, which
The Ligawasan Marsh, fed by the Mindanao River Basin,
has a combined area of 285,000 ha, close to 20% of the
total land area of the Bangsamoro region. It is the major
96
will seriously threaten water availability in the near term.
A.2.2. Marine Resources
source of livelihood in 20 municipalities and one city,
The BCT has 3,232 km of coastline and 18,426,613
and it straddles Maguindanao, North Cotabato, and Sultan
hectares of territorial ocean waters, including a portion of
Kudarat. It is cultivated during the dry season and fished
the Sulu-Sulawesi Sea, which is one of the richest fishing
during the wet season. It supports threatened endemic
grounds in the country and the epicenter of global marine
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biodiversity. This large marine ecosystem is one of the
urban land reform program and land use program; and
most diverse and productive in the world, recognized
(c) as a function of transitional justice, restoration or
for the variety of habitats it supports, from reefs to
reparations arising from any unjust dispossession of
mangroves and the second highest seagrass diversity in
territorial and property rights, the quality, quantity and
the world.109
status thereof to be determined mutually by both the
Bangsamoro Government and the Central Government.
It hosts the Turtle Islands Wildlife Sanctuary in TawiTawi, one of the first trans-boundary marine protected
The various problems in land administration at the
areas involving the Philippines and Malaysia. It is one
national level are magnified in the Bangsamoro region.
of only 10 turtle nesting areas in the world and the only
These include: (a) multiple agencies with duplicating
one in the ASEAN region. This marine ecosystem is also
and overlapping functions and complex processes;
considered a biodiversity hotspot. The participation of the
(b) multiple applicable laws, causing inconsistencies,
Bangsamoro in the trans-boundary management of these
especially on agency functions and mandates; (c)
marine resources remains minimal and insignificant.
multiple land titling processes, with the emphasis on a
judicial mode of titling (in contrast to the rest of Southeast
major
Asia which uses an administrative mode of titling); (d)
livelihoods, particularly in Sulu, Basilan, and Tawi-Tawi,
multiple forms of ownership; (e) multiple standards for
contributing to 18% of the national fisheries and 72% of
land valuation; and (f) multiple agencies undertaking
the national seaweed production.110
valuation.112
There are increasing threats to coastal and marine
The situation is further exacerbated by (a) inefficient land
resources and their biodiversity from inappropriate
record management (thus, the limited formal data on land
fishing and overfishing, pollution, illegal trade of
ownership and usage in the Bangsamoro); (b) incomplete
endangered species, and haphazard foreshore land use
and deficient cadastral survey; (c) large number of
caused by policies that do not respond to the needs of
untitled parcels; (d) weak monitoring of land policy;
the growing population.111 A splintered governance
(e) limited public participation in land use planning
framework among the ARG, the Central Government,
processes; (f) lengthy and expensive appeal processes;
and LGUs complicates the management of marine
and (g) weak framework for large scale land investments,
resources.
resulting in land conflicts, uneven sharing of benefits,
Fishing
and
seaweed
production
are
the
and increased investor risks and costs.
A.3. Land Governance
While land is an environmental resource, it has
For example, the Comprehensive Agrarian Reform
widespread cross-sector implications, as briefly discussed
Program in the ARMM covers about 340,000 ha,113 of
in Chapters 7 and 12.
which 70% had been accomplished by 2011, benefitting
83,000 beneficiaries. Based on Commission on Audit
Given the complex issues surrounding land rights in
reports, evasion and plunder under Voluntary Land
the Bangsamoro, the CAB and the BBL provide for
Transfers (VLT) and Voluntary Offers to Sell (VOS) is
administrative powers on land administration and
worse in the ARMM than in the rest of the Philippines.114
management to the Bangsamoro Government. Related
exclusive powers granted to the Bangsamoro Government
A.4. Mineral Resources and Other Extractives
include: (a) management of ancestral domain, in
Little geological assessment work has been conducted
recognition of IDPs’ right to pusaka inged (native titles);
in ARMM to date, resulting in a dearth of reliable and
(b) adoption and implementation of a comprehensive
current geologic information to assess the region’s
97
mineral and other extractives potential. The potential for
In capital cities and towns, solid waste management
mineralization is deduced from the presence of specific
is consistently identified as one of the main sources of
geologic and tectonic settings that are favorable for
dissatisfaction. Only one sanitary landfill receives the
mineral deposition. The reported presence of minerals in
combined wastes of 128 municipalities and four cities,
specific areas is also used for inferring the potential for
estimated at 940 MT per day and expected to reach
mineralization.115
972.14 MT per day in 2016.117 The region also has 19
materials recovery facilities (MRFs) serving 19 barangays.
Of the Philippines’ total petroleum resources of about
nine billion barrels fuel of oil equivalent (bfoe) (or about
With a high concentration of urban areas along
690 MTOE), more than half (or about five billion bfoe) is
waterways, poor waste management results in flooding
estimated to be deposited in the offshore of West Palawan
and water supply contamination. Only three LGUs have
and Sulu Sea regions.
approved solid wastes management plans in compliance
with the Ecological Solid Wastes Management Act.
The BCT is said to hold vast deposits of natural gas and
oil, especially Maguindanao along Central Mindanao’s
As discussed in Chapter 9, the ARMM has been cited as
220,000-hectare
known
having persistently low coverage rates for safe water and
exploration work, however, was in 1997 by the Malaysian
sanitary facilities. It has the poorest access to safe water
petroleum giant Petronas Carigali and the Philippine
and to sanitary toilets, at 55% and 34%, respectively.118
Liguasan
Delta.
The
last
National Oil Company. Maguindanao is also said to hold
108,000,000 MT in coal deposits.
Consequently, it has the highest reported incidence of
water pollution from sewage and the highest reported
Map 12 illustrates the permissible mining areas based on
incidence of sanitation and hygiene-related diseases. The
Executive Order No. 79 series of 2012. This includes the
DENR-EMB has designated several BCT water bodies as
existing nickel mining operation in Languyan, Tawi-Tawi.
Water Quality Management Areas (WQMA) for which
A.5. Renewable Energy
As discussed in Chapter 8, the BCT has various renewable
energy resources, including geothermal, wind, solar, and
hydroelectric power, providing potential for a sustainable
energy base. Biomass is another potentially significant
power resource. These existing and potential resources
could be explored in line with the overall objective of
quality within the water body’s classification or improve
the quality to higher classification.
A.7. Climate Change Adaptation and Disaster Risk
Reduction and Management
Like many other parts of the Philippines, the Bangsamoro
is prone to natural hazards, many of which are
environmentally-sustainable human development.
aggravated by climate change. These include flooding,
A.6. Urban Areas and Residuals Management
surges, and earthquakes. Flooding around the Mindanao
Four urban areas—the cities of Marawi in Lanao del
Sur, Lamitan and Isabela in Basilan, and Cotabato City
in Maguindanao—account for 18% of the Bangsamoro
population, with an average density of 1,070 per sq km.
In these cities and in the 128 municipalities in the region,
only 47 comprehensive land use plans are in effect,
mostly from the 1980s and 1990s.116
98
management plans will be drawn up, to keep water
rain-induced
landslides,
volcanic
eruptions,
storm
River Basin frequently causes large-scale displacement.
Cotabato City and many municipalities in Lanao del
Sur, Maguindanao, North Cotabato are vulnerable to
rain-induced landslides. North Cotabato, Lanao del Sur,
Lanao del Norte, Maguindanao, and Sultan Kudarat are
earthquake-risk areas, with Maguindanao considered
high-risk.
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Map 12: Integrated Mining Map (EO 79) (2013)
Source: DENR-MGB (2013)
There are at least five volcanic complexes in and around
through the BCT. However, the same number of cyclones
the BCT: (a) Lanao Volcanic Complex; (b) Ragang
passed through the area in just the past four years (2011
Volcanic Complex; (c) Mt. Parker; (d) Mt. Matutum
to 2013), indicating a radical change in pattern for this
Volcano Complex; and (e) Mt. Dajoh.
hazard.
119
Particularly vulnerable to storm surges and tsunamis
Climate change projections by PAGASA include an
are the coastlines of Basilan, Sulu, and Tawi-Tawi. The
increase of 1.0-1.2oC in the short term (2020) and 2.0-
periodic El Niño Southern Oscillation (ENSO), which
2.4oC in the medium term (2050) in ARMM temperatures.
caused the highest economic losses in Maguindanao in
Rainfall in the short term is projected to increase by
1998, also threatens the region.
as much as 7.2% from December to February and
decrease by as much as 7.4% from June to August. The
While typhoons are infrequent in the ARMM, the
frequency of extreme events is also expected to increase
peripheral
significantly. The number of days with temperatures
effects
of
a
typhoon
passing
through
120
exceeding 35oC is projected to rise at least eightfold
PAGASA data show that in the period from 1955 to
from the observed baseline. The number of dry days is
2010, a span of 55 years, only four cyclones (one tropical
projected to increase by more than 150%, and days with
depression, two tropical storms, and one typhoon) passed
extreme rainfall by at least 250%.
neighboring provinces can be felt in the region.
99
Despite these significant risks, the BCT has had no
both poverty alleviation and wealth creation needs in host
vulnerability and disaster risk assessments and has limited
communities, and improve the environmental and natural
capacity for disaster risk reduction and management and
resources base quality for sustainability. The two sectoral
climate change adaptation (see Map 13).
goals are: (a) enhancement of the environment and natural
B. Strategic Goals
Sharp focus will be needed on regional and local
institution-building for environmental governance to
resources of the Bangsamoro and (b) increased resilience of
local communities to natural hazards and climate change.
To attain these goals, the BDP will aim to:
enable the Bangsamoro to manage the environmental
1. Conserve and enhance the ecological integrity of the
threats caused by indiscriminate exploitation and
Bangsamoro region in the context of comprehensive
degradation121 and cope with the impacts of natural
sustainable development and vicegerency and
hazards and climate change. This will need to be
2.Enhance the Bangsamoro communities’ capacity
complemented by environmental baseline establishment
to manage disaster risks from natural hazards and
and quick-impact programs and projects to address
develop resilience to climate change impacts.
Map 13: Vulnerability (2008)
Note: DENR-MGB describes the degrees of landslide susceptibility as follows:
• Very High Susceptibility—Areas usually with steep to very steep slope, and are underlain by weak materials. Recent landslides, escarpments and tension cracks are
present. Human initiated effects could be an aggravating factor.
• High Susceptibility—Areas usually with steep to very steep slopes, and are underlain by weak materials. Areas with numerous old/inactive landslides.
• Medium Susceptibility—Areas with moderately steep slopes. Soil creep and other indications for possible landslide occurrence are present.
• Low Susceptibility—Gently sloping areas with no identified landslides.
Source: SERD-CAAM (2008)
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C. Strategies
C.1. Environmental Governance
C.2. Forest and Watershed Restoration
Preserving the rich ecosystem across the Bangsamoro
The region’s forest cover has been dramatically shrinking
has wide-ranging effects on the wellbeing and economic
over the past decade, and the effects on communities
potential of the region. Sustainable management of
and the ecosystem are evident, with rampant flooding,
environmental resources will improve the ability of
landslide, temperature increases, etc. This concern will be
communities to benefit from their natural surroundings,
addressed through:
reduce the prevalence of flooding, and contribute toward
developing a tourism industry in the region. This will
a. The restoration and enhancement of degraded
require a strong environmental governance regime that
and denuded forestlands, including nurseries, and
will include:
coastal and marine ecosystems will not only ensure
future sustainability of these habitats and their
a. Formulation of a comprehensive framework for
sustainable development in the Bangsamoro and a
resources, but can also double up as labor creation
opportunities;
Strategic Environmental Management Plan (SEMP);
b. The protection of hedgerows through planting of
b. Capacity-development of Bangsamoro environment
appropriate species that will hold the soil nutrients
and
sustainable
development
institutions,
and prevent from erosion, and siltation;
including a Bangsamoro Sustainable Development
c.The immediate forest based livelihoods from non-
Board (BSDB) and the envisioned Ministry of
timber forest products (NTFP) and agro-forestry in
Environment;
support of forest protection;
c. Integrated Environmental Governance systems to
d. Forest boundary delineation to define the extent
have a broader form of management for areas of
of forest cover for both protection and production
particular ecological significance, such as Lake
purposes; and
Lanao and the Ligawasan Marsh;
e. A strong monitoring mechanism to ensure that
d.A mechanism for equitable sharing in the use of
efforts are sustained. This will include hiring of
Lake Lanao waters as a source power generation
forest guards and sea guards—job positions that can
for the effective development of the watershed
lend themselves well to the out-of-school youth and
ecosystem;
decommissioned forces.
e. Strong policies under the Bangsamoro Waters and
Zone of Joint Cooperation agreed by the Central
C.3. Land Governance
Government and the Bangsamoro Government;
The BDP recommends formulating an interim land policy
f. A comprehensive natural resource assessment,
that will lead to development in the medium term of a
especially of biodiversity and of mineral deposits;
strong and unified policy and legal framework on land
g.A culture-based information drive to help the
rights, with the objective of restoring public confidence
people of the BCT realize the importance of
in the land administration system and building the
sustainably managing the environment; and
foundations of reconciliation and trust-building. This
h.An ecotourism development strategy based on
would include a sound institutional framework, with one
preserving landscapes, seascapes, and abundant
land administration agency for land registration, cadastral
biodiversity in the BCT. As discussed in Chapter 7,
survey and mapping, and collection of land and related
the ecotourism potential has high implications on
fees. It would also call for fair, impartial, and streamlined
the region’s economic growth and promotion of
procedures and reasonable transaction costs that would
social cohesion.
encourage participatory policymaking.
101
C.3.1. Short-Term Actions (2015 and Mid-2016)
an interagency body on land use and physical
To reduce the risk of a strong increase in land conflicts
planning,
and associated violence and instability in the postCAB environment, three policy actions in the transition
period are recommended:
was
recently
strengthened
and reformed as a NEDA Board Committee.
The following land-related analytical studies could
also be undertaken:
a. Ensuring adequate and timely information on land
conflicts by strengthening the local institutions’
capacity to monitor land conflicts and establishing
an early warning system that allows for a
i. Inventory of laws and regulations relating to
land and property rights in the Bangsamoro;
ii. Assessment of the capacity of the formal judicial
rapid response aimed at preventing escalation.
and informal/traditional dispute mechanisms in
The initial task will be setting up a geographic
iii.Intentions survey among displaced persons
information system to capture data on land
disputes
and
conflict
prevalence,
initially
focusing on areas where the prevalence of land
conflicts is considered the highest and/or the
risks of escalation are considered the greatest.
This would include existing data on rights from
DENR, LRA, DAR, and NCIP and on land
classification,
particularly
the
boundaries
of
alienable and disposable land from the DENR;
mapping of ongoing and potential conflicts
related to natural resources and plantations, with
particular attention given to the special issue
surrounding indigenous peoples and ancestral
domains; and mapping of areas likely to be of
key locations;
and combatants, to provide an indication of
potential population movements and areas
where tensions relating to land may emerge;
and
iv.
Documentation
of
potential
areas
for
commercial plantations, including assessing
the availability of land and willingness of small
holders to participate in plantation ventures.
b. Limiting the number of land conflicts that may
arise from the CAB by implementing a joint
information
campaign
aimed
at
discouraging
people to take land matters in their own hands and
encouraging respect for past and current land rights.
interest to agribusiness and mining investors.
c. Ensuring that existing land conflicts can be
This information would help focus initial efforts
institutions to mediate land conflicts, especially
to: understand the nature and extent of disputes;
test appropriate mechanisms to resolve them;
and provide the basis for selecting initial areas to
resolved by strengthening the capacity of local
through improved coordination, communication
and learning among the different actors involved.
These mechanisms would need to provide for
pilot efforts to register land rights systematically.
sustainable
It would inform ongoing initiatives, such as the
Establishment of an ad hoc mediation body for
DENR-Land Management Bureau’s memorandum
of
agreement
with
the
ARG
to
undertake
jointly the cadastral survey in Maguindanao
and Basilan, and facilitate coordination with
the National Land Use Commission (NLUC),
102
which
settlements,
framing
jurisdictions
acceptable to the law of the community and Islam.
dealing with land dispute that cannot readily be
dealt with the local level could also be considered.
All the above actions would need to reflect the cultural
sensitivities to the traditional forms of land ownership,
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especially in some Moro communities, and also in some
management program across the BCT, including
IP communities, where, among other things, individual
installation of additional waste treatment facilities;
titles are not necessarily desired or feasible at this time.
and
C.3.2. Medium-Term Actions (Mid-2016 to 2022)
A land policy will be needed to provide the basis for the
legislative agenda of the Bangsamoro Government on land
tenure, with the objective of developing a participatory,
systematic, and cost-effective registration process. Given
that a significant number of existing land titles are in
dispute, it would be important to have a comprehensive
communication and outreach program.
C.4. Urban Ecosystem and Waste Management
Program
The Bangsamoro urban areas are crowded and their being
located along rivers and coastlines contributes significantly
c. Work with LGUs to establish and operationalize solid
waste management councils.
C.5. Climate Change Adaptation and Disaster Risk
Reduction
Communities across the Bangsamoro are vulnerable to
climate change and disasters, and have very little capacity
for prevention. The Bangsamoro Government would need
to:
a. Conduct Comprehensive Vulnerability Assessments
across the region;
b. Support LGUs to formulate risk-based comprehensive
land use plans (CLUP); and
c. Build the capacity of officials in LGUs and the
to pollution in the region. To tackle this, the Bangsamoro
Bangsamoro
Government would need to:
adaptation and disaster risk reduction.
a. Formulate a Bangsamoro Core Territory Sustainable
Government
for
climate
change
Cities/Towns Plan and initiate redevelopment in pilot
D. Summary of Priority Programs
areas to serve as a model for urban management in
The programs to achieve the goals and objectives and
the region;
respond to the problems identified in the region are
b. Develop and implement a comprehensive residuals
described in Table 26.
management program and a comprehensive waste
103
Table 26: Priority Environment and Natural Resource Programs*
Objectives
Priority Programs
Environmental Governance
To preserve the
ecological integrity of
the Bangsamoro in the
context of comprehensive
sustainable development
Urban Ecosystem and Waste
Management Program
Components
• Formulation of a comprehensive framework for sustainable development in the
Bangsamoro comprising key legislative measures and a Strategic Environmental
Management Plan (SEMP)
• Capacity-development of Bangsamoro environment and sustainable
development institutions, including creation of a Bangsamoro Sustainable
Development Board (BSDB) and a Ministry of Environment
• Integrated Development for Lake Lanao and Liguasan Marsh
• Strengthen and support Community Empowerment for Environmental
Conservation and Protection
• Policy for the Bangsamoro Waters and Zones of Joint Cooperation
• Comprehensive Biodiversity Assessment of the Bangsamoro
• Restoration and enhancement of degraded/denuded forest lands (including
nurseries) and comprehensive coastal and marine reform program
• Establishment of monitoring mechanisms (including hiring of forest guards and
sea guards)
• Formulation of BCT Sustainable Cities/Towns Model Plan(s) and initiation of
redevelopment
• Development and implementation of a BCT-wide comprehensive residuals
management program
• Establishment and operationalization of LGU-level solid waste management
councils
• Ecological Solid Waste management program
Reduce land conflict
(short-term and long-term)
Comprehensive Land
Administration and
Management Reform Program
for the Bangsamoro
To enhance Bangsamoro
communities’ adaptive
capacity for climate
change and DRRM
CCA/DRRM for Social Justice • Comprehensive Vulnerability Assessments and Watershed Characterization
and Mitigation of Displacement • Formulation of risk-based Comprehensive Land Use Plans (CLUPs) for all LGUs
in the Bangsamoro
• CCA/DDRM capacity-building
• Mapping and analytical work on land rights and land conflict
• Strengthening of conflict mediation mechanisms
* Programs on mineral resources and other extractives can be found in Chapter 7.
NOTES
102
103
104
105
106
107
108
109
110
111
112
113
114
115
116
117
118
119
120
121
104
“Proposed Bangsamoro Basic Law,” Article XIII, Section 2.
Ibid., Section 3.
This was confirmed by DENR-ARMM FMS Director Ismael Mabaning during a meeting discussion on August 19, 2014 at the DENR-ARMM office.
National Mapping and Resource Information Agency (2010).
Department of Energy and Natural Resources-Autonomous Region in Muslim Mindanao (2012).
Japan International Cooperation Agency (2014) and Benito (2014).
Philippine Statistics Authority (2012).
World Wildlife Fund (2014).
Malik and Alcos-Cabangbang (2013).
Mindanao Development Authority (2012).
See Tiamson and Ballesteros (2013).
According to the Census of Agriculture, this figure is well below the 520,000 ha of temporary and permanent crops, suggesting a large number of
exclusions at the scoping stage.
Gutierrez and Borras (2004).
Japan International Cooperation Agency (2014).
Housing and Land Use Regulatory Board (2014).
National Solid Waste Management Commission (2014).
Department of Health (2011).
MRBIMDP (2012) and PDPFP Sulu (2013).
Tio (2014).
The ARMM Regional Development Plan (2013) identified the causes of environmental degradation and exploitation of resources as weak
enforcement of laws, low level of awareness on the benefits of the environment, lack of LGU support, and climate change vulnerability.
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11
The CAB and the BBL affirm the distinct cultural heritage
and birthright of the Bangsamoro people to their ancestral
homeland and right to self-determination. Their principles
include recognition, respect, and celebration of the
many identities and cultures of the various peoples in the
Bangsamoro.
Culture and language are covered by an exclusive power
vested upon the Bangsamoro Government. The CAB’s and
the BBL’s provisions on economy, social development,
environment, governance, and justice and security are
formulated in harmony with customary laws and traditions,
while ensuring cultural, gender, and intergenerational
inclusivity.
The BBL provides for the creation of a Bangsamoro
Commission for the Preservation of Cultural Heritage
(BCPCH) and has specific policy recommendations relating
to Shari’ah-compliant justice and financing, regulations
and practices on halal, and organization of hajj and other
religious related travels, as well as the various rights
and practices of the Bangsamoro’s indigenous cultural
communities, including the right to pusaka inged (native
titles).
In this light, the BDP gives priority to culture and identity
as critical elements of sustainable human development and
peacebuilding.
106
A. Context: The Diverse Culture in the
Bangsamoro
The Bangsamoro society consists of 13 Muslim ethnolinguistic groups,122 about 20 non-Islamized indigenous
peoples (IP) groups, and settlers of various origins (see
Map 14). The CAB and the BBL define the Bangsamoro
identity in terms of those who at the time of conquest
and colonization centuries ago were considered natives
or original inhabitants of Mindanao and the Sulu
archipelago and its adjacent islands, including Palawan,
and their descendants whether of mixed or full blood
shall have the right to identify themselves as Bangsamoro
by ascription or self-ascription.
The BBL specifies the historical governance structures of
the Moro Sultanates of Sulu, Maguindanao, Kabuntalan,
and Buayan, the Royal Houses of the Maranao, while
guaranteeing the freedoms and rights of settlers and of
IPs.
Figures 29 and 30 illustrate the high level of ethnic
and religious diversity in the Bangsamoro. In the
spirit of unity and social cohesion, the Bangsamoro’s
cultural diversity highlights the need for inclusivity and
localized solutions, while preserving its rich heritage
and knowledge practices. Further details on the ethnolinguistic groups in the Bangsamoro are provided in
Annex F (Cultural Diversity in the Bangsamoro).
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Map 14: Ethnic Diversity Index (2010)
Source: PSA-CPH (2010), DSWD-NHTS (2010), PhilGIS (2013)
Figure 29: Ethnic Diversity in the Bangsamoro (2010)
Figure 30: Religious Diversity in the Bangsamoro (2010)
Note: The numbers are estimates using index of fractionalization as a measure of social diversity along various
social cleavages such as ethnicity and religious affiliations
Source: BDP-CPT estimate (using PSA-CPH 2010 data)
107
Initiatives that recognize and preserve Bangsamoro culture
The sectoral goal is, therefore, to support practices
and identity are scarce, leaving much of its language,
and build foundations for institutions that preserve and
historical narratives, and artifacts to be eroded by time and
strengthen the Bangsamoro’s diverse cultural resources
modernity. Many important historical figures, events, and
and heritage, in line with the objectives of sustainable
places are no longer in public memory, especially for the
human development and peacebuilding.
younger generation. The practice of indigenous sports and
games, music, visual art, literature, dance, and crafts have
In achieving this goal, the strategy on culture and identity
been largely relegated to the margins. There are no codified
is articulated around the following three objectives:
rules and regulations on burying the dead, and so graves
are scattered without designated maqaabir al-’aam (public
1. To assist communities to identify and preserve their
cultural resources, traditions, values, and practices;
cemeteries).
2.To establish and strengthen cultural institutions
The
cultural
implications
on
sustainable
human
to
protect,
conserve,
nurture,
and
promote
development are immense. Traditional health practices are
Bangsamoro’s tangible and intangible cultural
still prevalent in remote areas in the absence of adequate
heritage; and
public services. There have been no significant measures to
3.To promote creation and sustainability of local
align mainstream health service delivery with those through
culture, heritage, and art groups through various
the waliyan (midwives) and taligamot (traditional healers).
forms of incentives and assistance.
Some initiatives toward the use of indigenous mechanisms
B.1. Conservation of Cultural Heritage
for conflict resolution and peacebuilding have yielded
As described in the BBL, the BCPCH will be created
positive results. However, traditional leadership structures
primarily to record the history of the Bangsamoro people
and titles, while prevalent, are largely nominal and have
and to establish and sustain the cultural institutions,
limited interface with present governance structures.
programs, and projects in the Bangsamoro component
areas. To assist the BCPCH in the full exercise of its
The enhanced scope of powers vested in the Bangsamoro
functions upon creation of the Bangsamoro Government,
Government as embodied in the BBL therefore provides an
multiple studies will need to be conducted during the
opportunity to address these institutional and developmental
transition period. These will include:
concerns, including IP rights.
B. Strategies
In line with the UNESCO definition of culture as “inclusive
of creative expression, skills, traditional knowledge and
the cultural resources that form part of the lives of peoples
and societies, serving as bases for social engagement and
enterprise development,” all plans, policies, and programs in
the Bangsamoro will necessarily be framed in the context of
cultural sensitivity and inclusivity, as a means of addressing
longstanding sources of dissatisfaction among Bangsamoro
communities.
108
a.Formulation of a comprehensive framework for
heritage, culture and the arts in the Bangsamoro,
including the various elements of indigenous sports
and games, music, visual art, literature, dance,
crafts, tribal attire, holidays, and languages, among
others.
b. Generation of baseline data on heritage, culture and
the arts in the Bangsamoro, including the provision
of research grants to cultural and academic
institutions.
c.Feasibility of establishing public museums and
libraries, including a Bangsamoro Museum to
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take charge of collation, collection, preservation,
policies and programs throughout the transition period,
and promotion of remaining relics and artifacts of
to ensure that all development interventions are designed
Bangsamoro culture. This will include retrieval
with a “bottom-up” framework in mind.
of artifacts that may be stored in museums
and national archives both in and outside the
Culture has to be seen also as a key resource for
Philippines.
the Bangsamoro. Weaving, brass-making, and other
indigenous handicrafts and metal crafts should be
Quick-impact projects will be implemented during the
revived and promoted, used to develop cultural tourism
transition period in line with confidence-building and
and other related public-private partnerships, in tandem
stabilization components of the CAB, as well as with the
with the improvement the institutional, infrastructure,
requirements of transitional justice during normalization.
and security bases for investment.
This may include installing historical markers to
commemorate the Bangsamoro struggle, and building
Likewise, the health system will be strengthened, by
maqaabir al-’aam (public cemeteries) in priority sites.
providing birthing facilities and forming partnerships
B.2. Culture and Education
among Muslim religious leaders and traditional and
western-trained midwives, and to optimize the mix of
In accordance with BBL provisions on establishing an
modern and traditional reproductive health elements,
educational framework that will be relevant to the needs,
while remaining respectful of history and culture.
ideals, and aspirations of the Bangsamoro, efforts will be
undertaken to support cultural initiatives that can enrich
the Bangsamoro educational system, including:
B.4. Promotion of Culture and the Arts
Bangsamoro
heritage,
culture
and
arts
will
be
popularized through the media and by encouraging
a. Provision of grants for textbook and module writing
that will commemorate the Bangsamoro struggles;
b. Support for establishment of an Institute of Bahasa
Bangsamoro, in order to develop a Bangsamoro
language;
indigenous cultural activities (such as the use of
traditional attire, musical instruments, and cuisine) in
schools, offices, and community gatherings.
B.5. Intercultural Exchange and Cooperation
c. Revival of Bangsamoro cultural sports;
Grants and scholarships for regional, national, and
d. Establishment of schools of living traditions; and
international intercultural exchange and cooperation will
e. Support for artistic excellence.
be created, in line with the development priorities of the
B.3. Culture and Development
Bangsamoro Government.
The mainstreaming of Bangsamoro culture and identity
B.6. Culture and Peace
in governance and development is at the heart of the BBL
This includes grants for the conduct of dialogue
and the BDP, as evidenced in the structure and function
initiatives, youth peace camps/trainings, and other
of the proposed Bangsamoro Parliament, as well as the
cultural projects that can support peacebuilding and
inclusion of such culturally relevant mechanisms as
unity among Bangsamoro communities.
Shari’ah-compliant finance and justice, among others.
This will be realized through the mainstreaming of
cultural sensitivity in the actual implementation of such
A summary of the priority plans and programs for the
transition can be found in Table 27.
109
Table 27: Priority Culture and Identity Programs
Objectives
Assist communities to identify
and preserve their cultural
resources, traditions, values,
practices
Establish and strengthen
cultural institutions to protect,
conserve, nurture, and promote
Bangsamoro’s tangible and
intangible cultural heritage
Promote creation and
sustainability of local culture,
heritage, and art groups through
various forms of incentive
assistance
Priority Programs
Components
Quick-Impact Projects
• Historical markers
• Bangsamoro public cemeteries (maqaabir al-’aam)
Conservation of Cultural Heritage
• Policy work on the creation of the Commission on
the Preservation of Cultural Heritage
• Establishment of Bangsamoro Peace Memorial
Museum
Culture and Education
• Grants for textbook writing on Bangsamoro
culture, history, language, arts, etc.; and
establishment of Schools of Living Tradition
Support for Artistic Excellence
• Grants and incentives for community artists/
artisans, researchers, cultural workers
Culture and Development
• Support for and mainstreaming of various
culturally-responsive development initiatives:
Shari’ah, halal and hajj
• Social marketing and advocacy
• Cultural tourism, Public-Private Partnership
Culture and Peace
• Dialogue/intercultural initiatives
NOTES
122 Dwyer and Guiam (2010) identified them as the Maguindanaon of Cotabato provinces; Meranaw of Lanao; Tausug of the Sulu archipelago; Sama
of Tawi-Tawi; Yakan of Basilan; Iranun (between Maguindanao and Lanao Sur provinces); Jama Mapun of Cagayan de Sulu islands; Kalagan of
Davao provinces; Kalibugan of Zamboanga Peninsula; Melebuganon of Palawan; Palawani of Palawan; Sangil of Sarangani; and Badjaw (Sama
Dilaut), originally from Sulu Archipelago. Also refer to Lingga (2010).
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12
Governance
111
12
Governance
The Autonomous Region in Muslim Mindanao (ARMM)
technical capacity; (c) political patronage and political
commenced as an Autonomous Regional Government (ARG)
dynasties; and (d) accountability deficits.
in 1989. The establishment and administration of the ARMM
proved too arduous, and the ARMM Government has been
A.1.1. Lack of Genuine Autonomy
constantly associated with weak governance. The transition
The
to the Bangsamoro Government will offer an opportunity to
barangay—comprising the ARMM are not formally
address structural problems and reconfigure the relationship
subordinate to the regional government. The LGUs are
among the national, regional, and local governments. It
pre-existing entities with their own elected local officials
will also open up the chance to strengthen accountability
and receive automatic appropriations from the Central
mechanisms, particularly those that engage communities in
Government. As such, they are effectively autonomous
local governance, in line with the Bangsamoro vision for self-
from the ARMM. Given then that the ARMM is “less
determination based on strong community engagement.
autonomous
LGUs—the
than
provincial,
local
city,
municipal,
governments…and
and
more
subservient and dependent on the National Government
As Chairman Murad said at the launch of the Sajahatra
than any other political sub-division in the country,”123
Bangsamoro
the ARG has struggled to build consensus around
Program
in
February
2013,
“further
development can only be effective when it is people-
regional priorities and implement regional policies.
centered. One that is determined and undertaken by its
ultimate beneficiaries. One that empowers people and its
A.1.2. Weak Technical Capacity
processes empowering.”
Given the poor education outcomes in the ARMM, the
regional and local governments have a shallow pool
This chapter discusses the governance challenges facing the
of technocrats, particularly for such key governance
region, presents the transition imperatives from the current
skills like planning, budgeting, and accounting. Due to
ARMM to the Bangsamoro Government in mid-2016, and
politicization, appointments are often based on affiliation
proposes interventions and targets to achieve these.
rather than qualification, discouraging qualified staff from
A. Context: Governance Structures and
Systems in the Bangsamoro
remaining in government.
A.1.3. Lack of Accountability
A.1. Governance Structure and Intergovernmental
Relations
Lack of technical skills is compounded by weak or
Since its creation, the ARMM has been faced with the
community engagement in local development bodies,
challenges of: (a) lack of genuine autonomy; (b) weak
112
nonexistent public accountability systems.124 Minimal
weak public oversight of service delivery, and lack
Governance
of a performance-based framework that links access to
public funds to performance have meant that the current
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Figure 31: Principal Sources of Government Funds to ARMM
(2009–2011)
system of governance neither rewards good performance
nor punishes poor performance. The Internal Revenue
Allotment (IRA), given as an automatic appropriation
to LGUs125 regardless of performance, is often used as a
personal “slush fund” of local chief executives or used to
resolve rido.126
A.2. Revenue and Budget Management
A.2.1. Weak Fiscal Autonomy
Although the ARG has instituted a number of governance
reforms, the region remains highly dependent on Central
Government transfers. Figure 31 shows only 2% of the
total amount of government funds available in the ARMM
Source: DFAT-Australia and WB (2013)—Basic Education in ARMM
(including LGU IRA and Central Government line agency
driven development projects run by the BDA and the
spending) is raised in the region. As a result, this allows the
ARG.129 Mandatory community participation in local
budget to be subjected to national control.127
development councils is usually nonexistent. The
Bangsamoro region has a number of capable civil society
A.2.2. Poor Budget Management
networks and organizations that are active in such
Budget management has generally been weak in the region.
fields as human rights, conflict monitoring, and public
A 2010 study on the ARMM’s education budget control
institutions found “weak internal control systems” and
“no clear guidelines for reporting on budget utilization by
the implementing units, and more importantly, a report
correlating budget spent with achievement of physical
service delivery monitoring. However, transparency and
accountability to the public remains limited.
Strengthening participation in local health boards,
parent-teacher
associations,
and
other
community
outputs or performance targets is nonexistent.”128
organizations active in service delivery would help to
With limited reporting on results and outcomes, the Central
to the public. Increasing access to information on
Government’s trust and confidence in the ARMM has
fallen. This, in turn, has created a vicious cycle of mistrust,
reduced funding, and diminished autonomy as the Central
Government
increasingly
implemented
development
improve the relevance of services and accountability
government performance is also critical to fostering
public accountability.
A.4. Judicial Institutions
programs in the ARMM through neighboring regional
Injustice is at the heart of the Bangsamoro struggle
offices of national line agencies rather than through the
for self-determination. It is also the main driver of
regional government.
violent conflict and poverty in the BCT. Strengthening
judicial institutions to promote social justice and
A.3. Civil Society and Community Engagement in
Governance
correct historical wrongs is central to the BDP. And yet,
Direct community engagement in governance has been
members of the community characterize the delivery of
very limited in the ARMM outside of major community-
justice services in the Bangsamoro.
impunity and limited access to justice for marginalized
113
A.4.1. Legal Pluralism in the Bangsamoro
The BBL “recognizes, protects, and guarantees the customs,
beliefs and traditions of the people of the Bangsamoro”
and “shall adopt measures to ensure mutual respect and
protection of these for the Bangsamoro people and the
other inhabitants of the Bangsamoro.” Article X of the BBL
provides the framework for the administration of justice in
the Bangsamoro, including:
a.Strengthening of the Shari’ah justice system and
expanding its jurisdiction to include civil, commercial
and criminal cases;
b. Establishing an Office for Traditional/Tribal Justice
System and enacting legislation that will promote and
support traditional/tribal justice system appropriate to
IPs;
c. Recognizing the powers of other local courts and
improving their capacity; and
d. Establishing an Alternative Dispute Resolution (ADR)
system, including provisions for prior recourse to
ADR in recognition of the principles of conciliation
and mediation.
are the majority of complainants, there are only three
female judges in the entire system, and cases filed by
women are more likely to be dismissed than those filed
by men.
A.5. Managing Conflict and Strengthening Security
The success of the Bangsamoro Government will largely
be determined by progress made on reducing conflict
and increasing security. With respect to the ceasefire and
the success of the Joint Coordinating Committee on the
Cessation of Hostilities (JCCCH) and the IMT, the stateminority contestation has been a relatively minor source
of violent conflict over the last six years. Rather, recent
data indicate that the incidence of inter-communal and
inter-elite conflict is the main driver of violence in the
Bangsamoro.130
Ensuring peace and security in the Bangsamoro will
therefore require the dismantling of the estimated 43
private armed groups operating in the ARMM,131 in
addition to the redeployment of military forces, the
establishment of an effective Bangsamoro police force,
and the disarmament of combatants.
A.4.2. Access to Justice
Access to justice in the Bangsamoro is generally weak.
Only half of the mandated State Shari’ah Courts are fully
operational, because of major resource constraints. Access
to legal aid is similarly minimal in a region that has very
few legal professionals. As a result, most disputes are
resolved through community-based justice mechanisms at
the village level. Elders and community leaders wield local
authority and legitimacy, but in general they run these
village-level institutions with no training in mediation and
limited knowledge of the law. Significant capacity-building
will be needed to strengthen these institutions.
A.4.3. Women and Access to Justice
As discussed in Chapter 10, the resolution of competing
land claims has interlocking environmental, economic,
governance, and security implications. Land management
institutions struggle with limited capacity, appear all
too often open to elite capture, and are insufficiently
resourced to withstand the politicization of land conflicts.
Land conflicts are related to historical grievances and
inadequate and/or failed land reform policies, and serve
as a trigger for rido.
B. Transition Period Phase
Besides the above governance issues that will require
significant time, effort, and resources to resolve, there are
Women suffer additional challenges in accessing justice.
immediate tasks that the Bangsamoro Government will
Community-based justice systems in particular tend to
need to address during the transition period. Adequate
reflect local power structures that often discriminate
responses to these will build the foundations upon which
against women, who are under-represented in positions of
solutions to these medium- and long-term challenges can
leadership. In the State Shari’ah Courts, although women
be resolved.
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The transition from the ARMM government to the final
element of building and uniting that constituency is
establishment of the Bangsamoro Government can be
therefore imperative, particularly with ethnically diverse
split into three phases, each with distinct governance
constituents. Moreover, in establishing unity, the role
arrangements:
of women must be recognized and harnessed, as a
1. BTC leadership from mid-2014 up to the passage of
the BBL;
sector that comprises half the constituency. Access to
information needs to be fostered as an important element
132
2. BTA leadership from the passage of the BBL up to the
in building trust in the Bangsamoro Government.
installation of the elected Bangsamoro Government;
and
To strengthen the constituents for the Bangsamoro
3. First term of the Bangsamoro Government.
Government, inclusivity must be fostered at various levels:
among ethnic groups that comprise the region; in the
The challenges and sequencing confronting the Bangsamoro
distribution of the benefits of the dividends of the peace
Government in each phase are summarized in Table 28 and
process; among groups belonging to different political
described fully in the following section.
factions, particularly among LGU officials, MNLF, among
others; and active participation of women in various facets
C. Transition Challenges, Features, and
Targets
of the development task.
This section describes in detail the critical challenges,
features, and targets for each phase of the transition (see
C.1.2. Intergovernmental Relations
By its nature, the Bangsamoro Government will need
Table 28)
to
C.1. Overall/General Transition Challenges
between itself and the Central Government. Ensuring
facilitate
Overall challenges in the transition period to the Bangsamoro
Government include: (a) constituency-building by the
Bangsamoro Government promoting inclusivity among its
various constituencies; (b) managing intergovernmental
relations; (c) restructuring regional governance; (d) redefining
relationship with local government units; and (e) encouraging
greater civil society participation and civic consciousness
among the Bangsamoro.
intergovernmental
harmony,
cooperation,
mechanisms
and
to
coordination
that concurrent powers are appropriately dispensed will
require establishing mechanisms that ensure the exercise
of exclusive powers are coordinated with the Central
Government’s actions.
C.1.3. Regional Governance
The first phase in establishing the regional government
will consist of hurdling problems associated with
systems will have to adopt a national standard, some
Among the most challenging tasks faced by the Bangsamoro
Government is uniting its constituency. There are two sides
in a social contract: the governed (or the constituency) and
the government.
need to be modified to reflect the unique features of the
Bangsamoro parliamentary form of government. These
include administrative relations between the regional
parliament and the regional government as well as
between the regional government and its constituent local
The Bangsamoro identity as articulated in the BBL provides
a strong impetus for unity and engagement in governance.
In the past, there was no sustained effort to harness the
constituency
robust
transition. While most of Bangsamoro’s procedural
C.1.1. Constituency-Building and Inclusivity
region’s
have
to
strengthen
governance.
The
government units. Budgeting procedures in the context
of the block grant and other Central Government funding
mechanisms and development approach will also have
to be adjusted to the unique structural features of the
Bangsamoro Government.
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Table 28: Challenges, Features, and Targets of Transition Phases I, II, and III
Phase I – BTC leadership
April 2014 until Passage of the BBL
116
Phase II – BTA leadership
The Passage of the BBL until May
2016
Phase III – Bangsamoro Government
May 2016 onwards
Overall / General
Transition
Challenges
•
•
•
•
•
Critical Features of
Transition Phase
• CAB, FAB and its Annexes, and
the proposed BBL are the primary
documents giving formal structure
to the Bangsamoro;
• The BTC, a composite entity (GPHMILF), has a very limited mandate
and limited authority or resources
to implement projects or programs
on its own;
• The BDA and BLMI, the MILF’s
current primary implementation
organizations, remain nongovernment entities with no
authority over any government
program or body;
• The BBL will not be in effect until
passed by Congress
• The ARG remains the government
entity authorized to govern
and represent the GPH in the
core territory of the proposed
Bangsamoro.
• The Bangsamoro is established
by law and the BTA is created; the
BTC will be dissolved;
• The BBL is in effect;
• Special Development Fund (SDF)
is released to the BTA by the
Central Government;
• ARG shall have transferred its
authority over devolved agencies
to the BTA. ARG has ceased to
exist.
• The elections will preoccupy both
the GPH and the BTA; and
• Donor support for the Bangsamoro
is expected to be high.
Specific Transition
Targets
• Organize and prepare a Transition
Team to support the Bangsamoro
Transition Commission (BTC) to
prepare for the establishment
of the Bangsamoro Transition
Authority (BTA)
• Organize and prepare a Policy
Development Team to support the
BTC and BTA in addressing key
policy issues
• Formulate the BDP containing
programs and projects and their
respective cost estimates that
can be funded by the Special
Development Fund
• Establish, define mandates, and
operationalize transitional bodies
(JNC, IDB, TJRC, JPST/JPSC, etc.)
• Coordinate with COMELEC on
management of the plebiscite
• Turnover of reports, documents,
• Reorganize Government and
functions, properties and other
establish new administrative
assets of the ARG is completed
systems
• Ensure uninterrupted delivery of
• Develop system support the
basic services
realization of fiscal autonomy
• Help ensure conduct of a
• Launch campaign to reform LGUs in
successful plebiscite (in
the Bangsamoro region
coordination with COMELEC)
• Completion of all preparations for
the reorganization of the ARG into
the new Bangsamoro Government
including the transfer of functions
and administrative responsibilities
and a reorganization plan ready for
implementation.
• Conduct and completion of studies
on urgent matters affecting the
establishment of the new regional
government
• Implementation of a constituencybuilding campaign
Constituency-building by promoting inclusivity
Managing intergovernmental relationships
Restructuring regional governance
Redefining relationship with LGUs
Encouraging greater civil society participation and civic consciousness among the Bangsamoro
• Devolution of functions to the
Bangsamoro is in full swing;
• The Parliament and Cabinet are
installed and the Chief Minister
elected;
• New sets of LGU officials are in
place;
• The first amounts of block grant,
special funds and internal revenue
shares need to be appropriated and
allocated by the Parliament through
a regional budget process;
• Donor support for the Bangsamoro
is expected to remain high; and
• Depending upon the results of the
plebiscite and elections, indications
of private sector interest to invest in
the Bangsamoro begin to show.
Governance
C.1.4. Local Government
The Bangsamoro Government will be inheriting a
convoluted local government system. It will also face
a structure that has thrived on patronage entrenched
through years of misdirection and non-supervision. It
will have to redefine its relationship with the LGUs
to promote greater transparency and accountability
among LGU officials to improve overall welfare of the
Bangsamoro, stabilize the peace and order situation,
and foster prospects of growth and development in the
region under its leadership. The Bangsamoro Parliament
will have to formulate and pass the law that will redefine
this relationship toward a more efficient delivery of basic
services to local communities.
C.1.5. Civil Society
The Bangsamoro Government will need to create
an environment for civil society to adjust to the new
condition of transition and stability. The focus of most
CSOs has been more on peacebuilding and livelihood
development and less on governance and security issues
and improvement of the delivery of basic services by the
regional government. Through partnership with donor
agencies, Bangsamoro CSOs can be strengthened in their
capacity to help effective delivery of the basic services.
The Bangsamoro Government will have to promote
greater civic consciousness among its constituents,
as the development problems confronting the region
will require cooperation and contribution from all
stakeholders to address them successfully.
C.2. Critical Features of Each Transition Phase
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the Region, in conjunction with the MILF’s BDA and the
BLMI.”133
The critical features of the first (BTC) phase include the
following:
a. The CAB, FAB and its Annexes, plus the proposed
BBL, are the primary documents giving formal
structure to the Bangsamoro;
b. The BTC, a composite GPH-MILF entity, has a
very limited mandate and limited authority and
resources to implement programs and projects on
its own;
c.The
BDA,
BLMI,
implementation
and
the
organizations
MILF’s
current
remain
to
be
nongovernment entities with no authority over any
government program or body;
d. The BBL in draft form is submitted for deliberation
and approval of Congress; and
e.The ARMM remains as the government entity
authorized to govern and represent the GPH in the
BCT.
Given that limitations of the BTC and the MILF during this
context, this phase is best suited to policy development
initiatives, conducting important research studies, and
organizing for the transition process, preparatory to the
establishment of the Bangsamoro Government.
C.2.2. Phase II—BTA Leadership (Passage of BBL until
May 2016)
The second phase is marked by the passage of the BBL
calling for the formal establishment of the Bangsamoro
Government and the creation of the BTA as an interim
The characteristics of each phase limit the types and
arrangement.134 The critical features of this phase include
nature of activities that can be implemented.
the following:
C.2.1. Phase I—BTC Leadership (April 2014 until the
Passage of the BBL)
The mandate of the BTC is limited to: (a) drafting the BBL;
(b) identifying possible Constitutional issues that bear on
the authority of the Bangsamoro Government; and (c)
coordinating with GPH agencies and NGOs to assist in
“identifying and coordinating development programs in
a. The Bangsamoro Government is established by law
and the BTA is created as an ad-interim body;
b. The BBL is in effect;
c.SDF is released to the BTA by the Central
Government;135
d.ARG shall have transferred its authority over
devolved agencies to the BTA;136
117
e.The plebiscite and then the regular election for
Depending on the results of the plebiscite and the
Bangsamoro Parliament members will preoccupy
elections, indications of private sector interest to invest in
both the GPH and the BTA; and
the Bangsamoro may begin to show.
f. Donor support for the Bangsamoro is expected to
be high.
C.3. Transition Targets: What Need to be Done
Each of the phases during the transition period will
The BTA will have fewer limitations during this phase,
require different sets of targets/activities, as detailed in
but the plebiscite and the regular election are expected
the following section.
to preoccupy everyone, including the MILF. It is a crucial
stage in the transition process for two reasons: First,
it represents the turnover stage from the ARG to the
Bangsamoro Government through the BTA. At this time,
C.3.1. Phase I—BTC Leadership (April 2014 until the
Passage of the BBL)
In Phase I, the targets/activities will be:
there will be events requiring detailed and meticulous
planning and various nuts-and-bolts issues will likely
a. To organize and prepare a transition coordination
arise. A good transition team would have to be formed
team to support the BTA in performing its mandate;
for the tasks. Second, it represents the handover stage,
b. To organize and prepare a policy development team
from the BTA to the first Bangsamoro Government-elect.
to support the BTA;
c. To formulate a BDP that identifies programs and
Between these two milestones, the BTA will have to
projects and their cost estimates that will be funded
ensure that “the continued functioning of government in
by the SDF;
the area of autonomy is exercised pursuant to its mandate
under the BBL.”
d. To establish and follow through on implementation
That means that while in office the
of the transitional bodies (i.e., JNC, IDB, TJRC,
BTA will need to guarantee uninterrupted delivery of
JPSTs, JPSCs) and task forces on camps and
public services while new institutions are being created
amnesties and pardons;
137
and their capacity is being enhanced.
e. To establish a body to manage the policing
C.2.3. Phase III—First Term of the Elected Bangsamoro
Government (May 2016 onwards)
challenges; and
f. To coordinate with the Commission on Elections
(Comelec) on overseeing the plebiscite.
The third phase is the “take-off” phase for the new
Bangsamoro
Government,
during
which
high
expectations will need to be managed carefully. The
critical features of the third phase will include:
a.Devolution
of
functions
to
the
Bangsamoro
Government is in full swing;
b. The Parliament and the Cabinet are installed and
the Chief Minister is elected;
c. New sets of LGU officials are in place;
d. The Parliament appropriates and allocates the first
amounts of block grant, and special funds through
a regional budget process; and
e.Donor support for the Bangsamoro Government
(according to pronouncements) is high.
118
C.3.1.1. Organizing the CT4T138
A Coordination Team for the Transition (CT4T) should be
organized to perform the following tasks:
a. Facilitate the transfer of properties, official records,
and books of accounts;
b. Receive and review official reports and documents,
as well as properties to be turned over by the ARG;
c. Help identify and act on other immediate issues
confronting the BTA regarding the transition
process; and
d. Help ensure that all functions mandated to the
Bangsamoro Government are transferred to it by
the ARG.
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As of November 2014, the GPH-MILF negotiating parties
BTC would need to be regularly updated on the progress of
had signed terms of reference for the Coordination Team
these bodies, as they are critical in determining the outcome
for the Transition to the BTA; otherwise known as the
of the concerns assigned to them.
CT4T.
C.3.1.2. Organizing a Policy Development Team139
Of particular importance is the establishment of a body
that will manage “policing” operations. The Independent
A Policy Development Team would need to be organized
Commission on Policing (ICP) has made concrete proposals
to conduct research and policy studies urgently needed
on reforms that will be needed in policing the Bangsamoro
to inform the BTA and, eventually, the Bangsamoro
region within the stipulations of the agreements between
Government on priority issues. It could conduct the
the GPH and the MILF. A unit would need to be created to
policy researches itself, or contract the services of
ensure implementation of these proposals.
outside experts to undertake such studies. Under the
latter arrangement, its role would be to ensure that the
contracted consultants produce high-quality outputs
and that their studies addressed appropriate and critical
policy issues confronting the BTA and/or Bangsamoro
Government. The Team would have to be composed of
highly qualified individuals from various disciplines in
the development field with long experience in policy
C.3.1.5. Coordinating with COMELEC on the
Management of the Plebiscite
While
awaiting
approval
of
the
BBL
in
Congress,
representations could be made with the COMELEC on
preparations for the plebiscite on the BBL as electoral
exercises normally take considerable time and manpower.
research and development.
C.3.2. Phase II—BTA Leadership (Passage of the BBL
until May 2016)
C.3.1.3. Special Development Fund (SDF)
Phase II has five major target activities:
The MILF (with support from BDA and other relevant
units) is expected to provide an estimate of the
development assistance it will require during the
transition period. The BTA is expected to implement or
start implementing selected development programs and
projects during its incumbency. However, the ARG will
have a working budget up to 2015 and the BTC will have
to determine whether the proposed priority programs and
projects of the ARG are covered by the ARG submission
for 2015. If not, these priority programs and projects will
have to be funded by the SDF and other funding sources.
C.3.1.4. Establishing and Following Through on
Implementation of the Transitional Bodies
The CAB and the BBL provide for the creation of a
number of transitional bodies (JNC, IDB, TJRC, JPSTs,
JPSCs, the Task Forces on the Six Camps and the Task
Force on Amnesties and Pardons) that will address
specific concerns during the transition process. Some of
these bodies have begun working and others are still to
be established or at the initial organizational stage. The
a. Turnover of reports, documents, functions, properties,
and other assets of the ARG is completed in an orderly
manner with minimal complications;
b. Uninterrupted delivery of basic services;
c. All preparations for reorganization of the ARG into
the Bangsamoro Government, including the transfer
of functions and administrative responsibilities, are
completed and a reorganization plan is ready for
implementation;
d. Conduct and completion of studies on urgent matters
affecting the establishment of the new regional
government to be approved by the Bangsamoro
Government; and
e. A constituency-building campaign is underway.
C.3.2.1. Completing the Turnover
As the detailed instructions and authority to implement the
turnover are not contained in the BBL, the CT4T will need
to formulate these guidelines for signing and issuance by
the Office of the President. Also, the CT4T will need to
119
assist in receiving and reviewing the various reports to
of delivery. If none is provided in the BBL, this plan
be submitted by the ARG. These will include financial
will detail the establishment of a regional government
reports, property inventories, personnel inventories, and
agency that will be responsible for implementing
others, which would be the basis for the formal turnover.
technical assistance programs to line agencies and
Milestone events of this activity will include the turnover
capacity-building programs for line agency staff.
of physical properties and financial assets and the proper
disposal of those physical assets according to auditing
rules, if needed.
d.Completion of an Organizational Performance
Implementation
140
Framework
and
Performance
Evaluation System (OPIF-PES). Until the current
In addition to the inventory of financial and nonfinancial
administration,
assets and official records, the ARG could prepare a
monitoring and evaluation framework in the ARMM
comprehensive baseline on the “state of the different
disabled attempts to evaluate regional operations
sectors in the ARMM” (i.e., the “Open Data” project).
at the outcome level. This inability contributed to
This would be an important document that the CT4T
inefficiencies attributed to the ARG and stymied
members could preserve and which the BTA and the
attempts to establish organizational and individual
Bangsamoro Government could maintain and continue.
accountability. The OPIF is an effective framework
C.3.2.2. Completion of Preparations for Reorganization
Preparations for reorganization will cover the following:
absence
of
a
performance
for planning line agency programs and activities
based on strategic objectives. It follows the design
of an administrative bureaucracy and organizational
structure. Given the differences between the ARMM
a. Design
and
Approval
of
Administrative
Bureaucracy and Organizational Structure. This
and the Bangsamoro Government, a new OPIF-PES
will be needed.
document will detail the organizational structure
of each agency defined in the BBL, the mandatory
e. Organization of a Transition Oversight Committee
associated
and Completion of a Monitoring Framework for
with each mandatory position, and the required
Transition. An oversight committee with defined
competencies.
mandates and composition will be needed to
positions,
qualification
standards
shepherd the transition process. It would need to be
b.Drafting and approval of an Organizational
composed of high-level officials of the GPH and the
Rationalization Program. This will outline in
MILF, and could also include some members of the
detail what line agencies and what positions are
Third Party Monitoring Team (TPMT) as the transition
to be retained, the process of personnel transfer/
involves implementing provisions of the peace
separation, hiring/rehiring, amount of separation
agreement.141 Based on the ARMM experience, it is
pay, grievance management system, and others.
important to have strong oversight of the transition
This will ensure that the rights of civil servants
process, to facilitate resolution of issues as these are
are protected. The program will be guided by the
encountered.
approved BBL.
c. Drafting of a Capacity-Building Plan. Staff of all
line agencies of the Bangsamoro Government
will need to undergo intensive reorientation and
training. This plan will outline the capacity-building
requirements of the line agencies and the manner
120
C.3.2.3. Completion or Commencement of Policy
Studies on Matters Needing Immediate
Attention by the BTA/Bangsamoro Government
a. Drafting a new regional administrative code for
consideration by the Bangsamoro Parliament. An
administrative code serves as guide to government
Governance
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operations and decision-making. It can include a
boundaries. Decisions on whether or not business
definition of territory and constituency as well as
transactions are within the region will depend on
administrative procedures to guide civil servants in
this study. The study will contain reference maps,
their day-to-day tasks. It delineates functions among
which will need to be closely coordinated with
the different line and staff agencies and other units of
the National Mapping and Resources Information
the regional government.
Authority (NAMRIA) of the Philippines. It should
provide guidance on what to do with “orphan LGUs”
b. Review
and
enactment of a regional electoral
(municipalities or barangays) that have decided to
code. The enactment of a Bangsamoro Electoral Code
join the Bangsamoro and have to be carved out of
is a priority. As proposed in the draft BBL, the first
their provinces or municipalities.
regular election for the Bangsamoro Government in
May 2016 shall be governed by this electoral code,
e. Creating regional special bodies on audit and civil
although National Omnibus Election Code shall apply
service. The BBL provides for creation of special
suppletorily, where appropriate.
bodies for audit and civil service administration. It
will be important to study how these bodies relate
c. Review and approval of the regional revenue code.
to the regional government and to their parent
The BBL identifies the revenue sources of the regional
organizations and the range of powers within the
government. These would form the basis for a review
region. The Commission on Audit and the Civil
of the present regional revenue code, or its repeal,
Service Commission are both constitutional bodies
as the case may be, based on the study results. Work
and their integration into the regional government
on this matter would be urgent, as action on a new
will need diligent and careful study.
revenue law would be among the first items in the
agenda of the Parliament. It would include drafting
f. Review and approval of regional local government
specific guidelines for establishing tax bases, tax rates,
code. The LGUs are likely to pose a serious concern
remittance of shares from internal revenue collections,
to the new regional government. Ambivalence on the
income from natural resource extraction, incomes of
part of both the Central Government and the regional
government corporations from operations in the region,
government has led to LGUs functioning practically
and other sources. These would help the BTA discuss
on their own. The present regional local government
procedural matters pertaining to fiscal autonomy with
code may need to be reviewed and revised. In the
the Department of Finance. The task would involve
context of a parliamentary form of government,
working with an interim Intergovernmental Fiscal
the Bangsamoro Government will need to define
Policy Board (IFPB)and later a permanent IFPB.
new relationships between itself and its constituent
LGUs. It will need the LGUs for revenue generation
This is one of the four priority legislations to be
purposes (collection of fees and regional taxes), and
accomplished by the BTA, including the Bangsamoro
the systems and procedures for that purpose need to
revenue code, the Bangsamoro Electoral Code, and the
be tightened.
Bangsamoro Civil Service Code.
g. Conducting a study on promoting the Shari’ah
d. Conducting a study defining the land and water
justice
system.
A
consistent
demand
of
the
boundaries of the region based on the results of
Bangsamoro peace negotiators was promotion of
the plebiscite. The Bangsamoro Government and
the application of Shari’ah justice system in the
the Parliament will need this study because many
region as part of their adherence to Islamic values
decisions will rely on the accuracy of regional
and respect for their distinct cultural identity. It is
121
important that a study on the feasibility of its
performance-based
budgeting
system
could
be
expanded application be undertaken, taking into
expected with the introduction of the Organizational
consideration the pluralistic nature of the justice
Performance Indicator Framework (OPIF). The budget
system prevailing in the region. The study would
system would need to allow the regional government
inform discussions in the Bangsamoro Parliament
to access funding for identified priority projects that are
on promoting wider application of Shari’ah
still covered by national government mandates.
justice. Further details on Shari’ah justice are in
k. Inventory,
the next section.
review,
and
adaption
of
relevant
administrative procedures. This task covers two
h. Drafting a law to delineate the rights of IPs
sets of procedures. The first pertains to procedures
in terms of exploitation of natural resources
governing relations between the legislature and the
within their territories. Section 11 of Article XIII
executive (Bangsamoro Parliament and Bangsamoro
(Economy and Patrimony) of the BBL specifies
Government) in a parliamentary system. The second
that a law will be drafted to define the rights of
pertains to procedures for government operations such
the IPs in the exploitation of natural resources
as procurement, government accounts management,
within their territories. This is consistent with the
personnel management and other similar systems.
BBL’s declaration that it recognizes and respects
the rights of IPs residing within the BCT (Section
5, Article IX —Basic Rights of the BBL).
l. Formulating
between
procedures
the
legislative
pertaining
and
to
relations
executive
organs
of the regional government. Rules, regulations,
i. Guidelines on receipt of grants and donations
and procedures governing relations between the
from foreign and local donors. The BBL allows
Parliament and the Government (i.e., the Cabinet) in
receipt of grants and other donations from
a parliamentary environment need to be documented.
foreign and domestic entities.The first three
Such documentation would guide not only officials
years of the regional government will see many
and staff of the Parliament, the Chief Minister (and
donors wanting to contribute to the success of
his/her Deputy) and the Cabinet Ministers, but also
the Bangsamoro experiment. For transparency, it
the ministry and Parliament staff who will have to
would be important to have rules on receipt by
deal with each other. This is particularly important as
the Bangsamoro Government of donations and
parliamentary procedures are alien to most Filipinos.
foreign assistance.
m. Formulating procedures on procurement, government
j. Modifying the regional budgeting and budget
122
accounts
management,
personnel
management
management system. With the block grant
and others. One of the major issues on regional
and SDF as predictable sources of funds from
administration
the
Bangsamoro
Agreement was the late adoption and documentation
Government may now prepare budgets from
of administrative procedures, which caused confusion
a single regional fund, whereas previously
and disorganization. To avoid this mistake, the new
there were two: allocations in the General
regional government will have to do an inventory
Appropriations Act, and the local fund. The
to all relevant manuals pertaining to government
systems and procedures on budgeting, execution,
administration, and adapt these to its operations. These
and monitoring will need to be reviewed and
procedures may need to be reviewed in the context of
modified
the ministerial form of governance. Some procedures
Central
Government,
substantially.
A
the
more
substantive
in
the
1996
GRP-MNLF
Peace
Governance
CH A PT ER
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may need to be incorporated into the administrative
With the installation of the first Parliament and the
code.
Bangsamoro Government, the activities/targets for this
phase are: (a) the regional government is reorganized
n. Optional creation of provisional intergovernmental
and its administrative systems are in place; (b) systems to
bodies. The FAB and its Annexes provide for
support the realization of fiscal autonomy are installed; and
creation of six intergovernmental special bodies
(c) the campaign to reform LGUs in the Bangsamoro region
relevant to governance, and other special bodies for
begins.
the normalization process. The BTA may decide to
form provisional intergovernmental bodies during its
mandate. The GPH and the BTA will coordinate and
cooperate on the composition of these bodies and
C.3.3.1. The Regional Government is Reorganized and
its Administrative Systems are in Place
Among the key activities under this agenda are:
on the mechanisms that will guide their operations.
Some of these may be created by legislative fiat,
depending on the advice of the study group.142
a. Implementation of the organizational rationalization
program.This program would best be placed directly
under the Chief Minister, who shall organize a
C.3.2.4. Implementation of a Constituency-Building
Campaign
rationalization program committee to oversee its
It would be essential for the BTA to show inclusiveness
representatives of the Civil Service Commission,
in its operations and decisions from the start in order to
members of the Cabinet, the employees of the
build a constituency for the Bangsamoro Government.
abolished
Demonstrating
participation
Government Service Insurance System, and the
of all stakeholders in each institution and act would
Pag-IBIG Fund, and a member of the CT4T. This
be critical to winning support from Non-Bangsamoro,
program will need to be coordinated closely with
settlers, and non-MILF constituencies. In building new
the reorganization of the regional administrative
institutions, there may be a need to capitalize on skills
bureaucracy.
representativeness
and
implementation. Committee members may include
ARMM
regional
government,
the
that are spread across all ethnic groups to ensure adequate
capacity to deliver on its mandate immediately and meet
expectations.
b. Reorganization of the line and support agencies and
offices of the regional government. The design of
the regional government’s structure and designation
C.3.3. Phase III—First Term of the Elected Bangsamoro
Government Officials (May 2016 onwards)
of mandates and functions to the different line
This phase covers the period from the inauguration of the
completed under the BTA. Guided by those, former
newly elected Parliament members to the end of 2019.
ARG departments that have been functioning on
During this period, the BTA will relinquish its mandate
an interim basis will be reorganized into the regular
in favor of the convened Parliament. The BBL defines the
service delivery units of the Bangsamoro Government.
(Ministries) and staff (Offices) units shall have been
functions and operations of the Bangsamoro Parliament,
the Office of the Chief Minister and the Cabinet, and the
With the structures defined and mandates allocated,
relationship between the Parliament and the Government.
position qualification standards are defined and the
An accepted practice in parliamentary democracies is
regional government embarks on a campaign to
that the executive sets most of the legislative agenda. At
attract the best and the brightest in the region. Staff
this point, the BTA’s Policy Development Team could
members of the abolished ARG who are found to be
be formally integrated into the regional government to
highly qualified will be encouraged to apply for new
support its agenda-setting role.
positions.
123
The reorganization will also cover the introduction of
process of approval. As discussed earlier, the Policy
the OPIF, against which each agency’s and individual
Development Team would have to work with both the
staff’s performance will be measured. A Performance
Parliament and the Cabinet to see the draft law pass.
Monitoring System would be needed to allow the
Bangsamoro Government to evaluate achievement of
e. Enactment of a law on Shari’ah justice. Similarly,
desired outcomes. Among the first major application of
the Parliament is expected to support this important
the OPIF would be the preparation of the Bangsamoro
legislation. The Policy Development Team could assist
Government’s First Six-Year Plan. Being outcome-
the Parliament and the Cabinet in drafting the bill.
oriented, the OPIF should be able to provide the
regional line and service agencies, guidance in linking
f. Implementation of capability-building plan. A unit
goals and objectives to agency program, project, and
will be established that will focus on providing human
activity (PPA).
resource development services to the different line
and support agencies of the regional government. It
Use of the OPIF framework would facilitate its linkage
will be responsible for implementing a capability-
to the annual budgets as well as the Medium-Term
building plan.
Expenditure Framework (MTEF) and Medium-Term
Investment Program (MTIP). The reorganization may
g. Forming and operationalization of intergovernmental
include introduction of agency operations manuals.
bodies. The six intergovernmental bodies pertaining to
All staffs would be oriented not only in its use but
governance, mentioned earlier, will be the following,
also in relevant procurement, government accounting
in order of priority:
management, audit, evaluation and reporting systems.
i. Intergovernmental Relations Body (from interim to
c. Establishment of a regional budgeting and budget
management system. The regional budgeting and
permanent)
ii. Intergovernmental
budget management system, designed under the
Fiscal
Policy
Board
(from
interim to permanent)
BTA, will be established in close coordination with
iii. Congress-Parliament Bangsamoro Forum
the Central Government’s Department of Budget and
iv. Intergovernmental Sustainable Development Body
Management. The IFPB and the Cabinet will review the
v. Shari’ah Supervisory Board
system before approval. The Policy Development Team
vi. Joint Body for the Zones of Joint Cooperation
members responsible for the scheme may provide
inputs for the review and approval process. The new
system will result in the preparation and review MTEFMTIP, which will dovetail with regional plans. The
C.3.3.2. Systems to Support the Realization of Fiscal
Autonomy are Installed
The key activities to meet this target will include:
new budget system will include a process to enable
the Bangsamoro Government and its constituent LGUs
a. Organizing the IFPB or converting its status from an
to access funding for region-identified priority projects
interim organ under the BTA to a permanent organ of
from national agencies.
the Bangsamoro Government;
b. A new regional revenue law is passed;
d. Enactment of an administrative code. The Parliament
c. Enforcing
guidelines
on
the
release of
is expected to support this basic and important
the annual block grant and other fund transfers from the
piece of regional legislation. The concerned Policy
Central Government;
Development Team member could shepherd the
d. Establishing a system of collecting regional taxes and
fees;
124
specific
Governance
e. Passing a law establishing a Shari’ah Supervisory Board
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Annex on Revenue Sources and Wealth Sharing.
Similar to the revenue law, crafting this piece of
to promote Islamic banking; and
f. Setting guidelines on access to credit financing and use
legislation will need intergovernmental intervention.
of alternative financing modes such as public-private
iv. Establishing systems for collecting regional taxes
partnership, bond issuance, and others.
and fees. The regional government will continue
i. Organizing the Intergovernmental Fiscal Policy
to rely mainly on its constituent LGUs to collect
Board (IFPB). The IFPB is a strategic body necessary
regional impositions. To avoid the confusion
for sustaining fiscal autonomy. It could be envisaged
that characterized the past system, better defined
as the equivalent of a regional Department of
arrangements between LGUs and the Bangsamoro
Finance. The Cabinet, led by the Chief Minister, will
Government will have to be made.
be responsible for its formal creation, although an
interim IFPB may be needed to help guide studies
v. Establishing a Fiduciary Supervisory Board. There
pertaining to fiscal autonomy and secure the SDF. A
is need for more banks in the region to facilitate
Policy Development Team may assist the Cabinet in
access to credit, promote savings, and keep
planning out its establishment.
financial transactions secure. The third is critical
to the region’s governance system because many
ii. Enacting a new regional revenue law. The Policy
LGUs are forced to stick to manual systems of fund
Development Team member assigned to study the
management in the absence of banks. The Policy
subject may shepherd the process of running the draft
Development Team could help the Cabinet draft
through the IFPB, the Cabinet, and the Parliament.
legislation establishing this board. The task will
The
pertaining
include undertaking a policy-focused study on the
to remittance of shares from internal revenue
regional government’s position on the Al-Amanah
collections, income from natural resource extraction,
Islamic Investment Bank of the Philippines and the
incomes of government corporations from operations
Southern Philippines Development Authority.
law
could
include
guidelines
in the region, and other sources. These will cover
operational guidelines to be followed by the
vi.Formulating and disseminating guidelines on credit
Bureau of Internal Revenue (BIR) in withholding the
financing and use of other modes of financing.
Bangsamoro Government’s share of internal revenue
Such guidelines will be important at an early stage
collections within the region. Crafting the law will
to assure the financial community that a policy
need inputs from relevant national government
framework for developing a regional financial sector
offices such as the BIR, the Bureau of Customs, the
is already being studied.
Department of Environment and Natural Resources,
and others.
C.3.3.3. The Campaign to Reform Constituent LGUs
Begins
iii. Setting guidelines on use of block grant and other
The BTA, with assistance from the Policy Development
fund transfers from the Central Government. The
Team, shall have developed a reform plan for defining
CT4T and the Policy Development Team could
the Bangsamoro Government’s relationship with local
work with the Intergovernmental Relations Body
governments. That plan will be subject of review by the
in setting specific guidelines on the release of the
Cabinet and the Parliament. Among the concerns that
block grant and other fund transfers from the Central
will need to be addressed are: (a) that two laws on local
Government, as provided for in the BBL and the FAB
governments are in effect; (b) corruption and patronage;
125
(c) proliferation of unqualified appointees; (d) monitoring
state justice mechanisms and through separate judiciaries
of performance in the delivery of public services; (e)
run by the MILF, which includes all aspects of the law,
action to be taken on municipalities that receive no
including commercial transactions and criminal justice.
allotments from the national budget; (f) greater civil
society engagement in local governance; and (g) the
Expansion of the jurisdiction of the government Shari’ah
issue of “orphaned LGUs” arising from their choice to
courts to cover commercial and criminal law was
join the Bangsamoro.
authorized under the ARMM Organic Act (Republic
Act 9054). However, the relevant enabling legislation
Among the actions expected under this reform agenda
was never adopted by the ARMM Regional Legislative
are: (a) decision on Muslim Mindanao Act (MMA) 25,
Assembly.
143
with the possibility of enacting a new regional law on
local governments; (b) implementation of an extensive
However, an expanded recognition of Shari’ah has
campaign to emulate the good and shame the bad local
also been accommodated in the CAB and in the draft
government leaders, and encourage the public to use
BBL, which stipulates that the Shari’ah courts in the
current reforms (such as the Full-Disclosure Policy) to
Bangsamoro shall have jurisdiction over Shari’ah law
expose malpractices through the media or by networking
enacted by the Bangsamoro Parliament pertaining to
with national civil society watchdog organizations;
“persons and family relations, and other civil law matters,
(c) pressing for greater oversight by the Civil Service
commercial law, and criminal law.”
Commission over personnel selection and appointments;
(d) standardization of cash management procedure and
On top of the existing District and Circuit Shari’ah Courts,
reporting, procurement, asset management, and third
the draft BBL proposes to establish a Bangsamoro Shari’ah
party monitoring of both nationally and locally funded
High Court that would exercise final and executory
projects; and (e) broader participation of the citizenry in
authority over matters of Shari’ah; a Shari’ah Public
monitoring the activities of LGUs.
Assistance Office; a Shari’ah Special Prosecution Service;
D. Promoting Shari’ah Justice
Shari’ah law has been applied in the Bangsamoro areas
for centuries to bring legal certainty and peace and order
to Muslim communities. Partial recognition of Islamic
law was extended by the Central Government in 1977
through Presidential Decree (PD) 1083, also known as
the Code of Muslim Personal Laws of the Philippines. PD
1083 covers family and personal law issues for Muslims
through a network of Shari’ah District Courts and
Circuit Courts in different parts of Mindanao, under the
supervision of the Supreme Court. Despite being underresourced, the formal Shari’ah courts are well regarded,
with surveys indicating relatively high levels of public
satisfaction.144
Parallel to the government Shari’ah courts, Islamic law
is also applied at the community level through non-
126
and a Shari’ah Academy.
Furthermore, the draft BBL establishes new standards for
Shari’ah judges, requiring that they have graduated from a
four-year course on Shari’ah or Islamic jurisprudence and
passed the Shari’ah bar examination.145
Making the Shari’ah justice system of the Bangsamoro
fully functional will require actions on multiple fronts:
institutional
development,
skills
development,
and
community access to justice.
D.1. Institutional Development
Institutional development will be supported in the
following areas:
a. Support
the
existing
Shari’ah
Courts.
The
existing Shari’ah Circuit and District Courts in the
Governance
Bangsamoro lack many basic facilities for handling
current caseloads. Circuit courts in many locations are
non-operational. To ensure that the existing Shari’ah
courts are adequately resourced and to prepare
for the expected expansion of the jurisdiction, an
institutional needs assessment will be launched as
a matter of priority. At the same time, coordination
within the existing courts system in the Bangsamoro
will be necessary and sharing of resources will have
to be discussed, given that caseloads from the civil
and criminal courts will be shifting across the Shari’ah
court system under the Bangsamoro.
b. Create the Shari’ah Academy. Establishing the Shari’ah
Academy is a top priority to ensure that appropriate
training is available to potential judges to fill the
bench of the Circuit Courts, District Courts and the
new High Court and to lawyers to fill the ranks of the
new Prosecution Service and Public Assistance Office.
Given the requirements laid out in the BBL, identifying
appropriate teaching staff, formulating the curriculum,
and establishing procedures for accreditation of
existing courses will be the immediate priorities.
c. Establish the Public Assistance Office (PAO). A PAO
for the Shari’ah courts has been envisaged for more
than a decade under the Expanded ARMM Organic
Act but has yet to be operational. As the jurisdiction
of the Shari’ah system expands into criminal cases, the
availability of affordable legal services becomes even
more important. In delivering these services, the PAO
could also consider cooperation with local legal aid
providers in the Bangsamoro.
d. Establish the Shari’ah Special Prosecution Service.
As noted in the BBL, the prosecution service will
be attached to the National Prosecution Service
of the Central Government. Detailed coordination
will therefore be necessary in the short term to
explore the transition of many functions from the
existing prosecutorial service to the Shari’ah Special
Prosecution Service.
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D.2. Skills Development
Establishing the institutions of the Bangsamoro Shari’ah
Justice System will require a significant effort to build
necessary expertise with the qualifications required by
the BBL. Training on Shari’ah law principles and rollout
of the required four-year course on Shari’ah or Islamic
Jurisprudence would be the key priorities for the shortterm period. The BBL provides that all Shari’ah criminal
laws passed by the Bangsamoro Parliament shall be
in accordance with universally accepted principles
and standards of human rights. Accordingly, both the
Bangsamoro Parliament and agencies of the justice
sector will need knowledge not only on Shari’ah and
Islamic jurisprudence but also on international human
rights law.
Accordingly, a targeted skills development plan on
Shari’ah and human rights will be formulated for the
following target groups:
a. Existing judges
b. Members of Parliament and staff
c. Candidate judges
d.Lawyers
In addition to knowledge programs on Shari’ah and
human rights, many Shari’ah judges have had very
little skills training in the past decade or so. Given the
expressed preference for mediation for the resolution
of civil cases through the Shari’ah courts, a program of
mediation skills will be prepared for existing judges.
D.3. Community Access to Justice
The establishment of a PAO would fill an important gap
in terms of access to justice through the Shari’ah court
system. However, legal aid alone would not ensure
access to equitable justice services for the poor. Legal
awareness is a precondition, and yet legal outreach
campaigns have been very limited in the region.
Given the limitless need but finite resources, innovative
ways will be used to inform people of their rights and
obligations and of means of seeking legal redress. This
127
could include working through NGOs, religious leaders,
the government. In the past, much of scarce public funds
and regular community meetings through development
were captured by rent-seeking officials, which resulted in
projects.
poor or absent basic services and in worsening poverty.
E. Strengthening Fiscal Autonomy in the
Bangsamoro
Significant deposits of mineral and non-mineral resources
have been reported in the BCT. If properly developed,
The ARMM generates only 2% of its budget internally.
Its heavy dependence on funding from the Central
Government has seriously weakened the ability of regional
officials to determine priority development projects in
the region and to address the development needs of their
people. It has also fostered a patron-client relationship
between Central Government officials and regional officials
whereby the political fortune of the latter depends greatly
on the amount of resources emanating from the former. The
institutionalization of the “block grant” formula in the BBL
is an attempt to strengthen the Bangsamoro Government’s
fiscal autonomy.
revenue
measures
and
improve
collection
efficiency. As security and normality are restored and the
economy grows at an accelerated basis, private investments
are expected to come, which will expand the Bangsamoro
Government’s
that can strengthen the Bangsamoro Government’s fiscal
autonomy. However, there is a need for a scoping study
of mineral and non-mineral resources, and feasibility/
engineering studies for their extraction to determine
whether the available volume can be extracted in a way
that is economically viable and environment-friendly.
The concomitant appropriate fiscal regime vis-a-vis the
operations of mining firms could be formulated as a way of
encouraging their entry while ensuring maximum revenue
gains for the Bangsamoro Government.
An open trading regime in areas declared as export
The Bangsamoro Government will have to pass additional
internal
the extractive industry can provide huge revenue sources
revenue
base.
Initially,
however,
the
Bangsamoro Government may have to offer incentives,
including tax holidays, to interested investors. In the
medium and the long term, operations of these investors
will contribute significantly to Bangsamoro Government
revenues in terms not only of their tax payments but also of
processing zones (e.g., Polloc Port in Maguindanao and
Bongao Port in Tawi-Tawi) with neighboring countries
would encourage the flow of more goods and services in
the Bangsamoro. Consequently, economic activity and
potential revenue sources would increase. An open trading
regime could also reduce prices of basic commodities
for Bangsamoro consumers, as prime agricultural and
manufactured products in neighboring countries are priced
lower than in the Philippines.
F. Normalization and Development
tax payments and revenue-generating expenditures of their
Peace, security, and development are fundamental
employees.
aspirations of everyone in the Bangsamoro. The CAB,
together with the Annex on Normalization, provides
Enhancing fiscal autonomy will require judicious use of
the platform for new institutional arrangements that will
government funds. Expenditures will need to be targeted
ensure that communities affected by the decades-long
on activities that will promote greater economic efficiency
armed conflict in Mindanao can return to a peaceful life
and growth, reduce the incidence of poverty, and improve
and pursue economic activities and sustainable livelihoods
the human development indicators of the populace.
free from fear of violence and insecurity.
Transparency and accountability mechanisms will need to
be built to uphold the accountability of local officials in
Upon its establishment, the Bangsamoro Transition
the use of public funds. Participation of CSOs and ordinary
Authority (BTA) shall assist and support normalization and
citizens would need to be encouraged in the workings of
development in the Bangsamoro.
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The Joint Normalization Committee (JNC) shall continue
G. Summary of Priority Programs
to coordinate the normalization process with the BTA as
A summary of the priority plans and programs for the
partner until the signing of an exit agreement.
transition period can be found in Table 29.
Table 29: Priority Governance and Justice Programs
Objective
Priority Programs
Components
Support for Transitional Bodies
• As provided for in the CAB and BBL
Support for BBL and Plebiscite
• IEC campaigns, voter registration, etc.
Capacity-Building, Organizational
Development, and Change Management
Requirements from ARMM to BTA
• Training programs on management and leadership, values
transformation
• Scholarships in priority technical courses
• Drafting of ministry transition plans
• Capacity-building for municipalities and barangays
Technical Assistance for Drafting of Key
Administrative Laws
• Based on priorities set by the BBL/BTA
Baseline Data Generation
• Data generation across all ministries, including a
comprehensive assessment of location, number and status
of infrastructure and personnel
• Creation of “Open Data” platform for the Bangsamoro
Transparency and Accountability Program
• Development of anticorruption strategy
• Geotagging and third party monitoring of programs and
projects
Access to Justice, including Shari’ah Justice
• Policy and programmatic work on the improving access
to justice, including the Shari’ah justice system in the
Bangsamoro
Fiscal Autonomy
• Reform of government corporations, regional economic
policy development, etc.
129
NOTES
123 Bacani (2005).
124 Despite more than 10 years of significant technical capacity-building support for LGUs across the region through the Canadian-funded Local
Government Support Program for ARMM (LGSPA), ARMM’s own reporting showed little improvement in the quality of governance in terms of both
fiduciary standards and service delivery outcomes. This experience suggests that the absence of accountability, rather than technical deficiencies,
is at the core of ARMM’s government challenges.
125 Only 6% of LGUs in ARMM received the Seal of Good Housekeeping from the DILG in 2013, compared to the national average of 76.6%.
126 Torres (2007), page 109.
127 Australian Department of Foreign Affairs and Trade and World Bank (2014).
128 Tribal Helm (2010), pages 32 to 34.
129 The Mindanao Trust Fund-Reconstruction and Development Program (see www.bangsamorodevelopment.org) and the ARMM Social Fund
Project.
130 Refer to the Bangsamoro Conflict Monitoring System (BCMS) and International Alert (2014).
131 Institute of Bangsamoro Studies and the Centre for Humanitarian Dialogue (2011).
132 The debate on the draft law could continue through the first quarter of 2015.
133 Executive Order No. 120, “Constituting the Transition Commission and for Other Purpose,” December 2012.
134 “The Framework Agreement on the Bangsamoro,” Section VII, Item 9.
135 See “Annex on Revenue Generation and Wealth Sharing,” Section V, Article B.
136 “The Framework Agreement on the Bangsamoro,” Section VII, Item 9.
137 Ibid., item 10.
138 The CT4T ideally will be supported by professionals with skills corresponding to those of the heads of line and major support departments of the
ARG: Public Works and Highways, Health, Education, Local Government, Social Welfare and Development, Transportation and Communications,
Science and Technology, Agriculture and Fisheries, Environment and Natural Resources, Trade and Industry, Regional Planning, Budgeting,
Treasury and Accounting, and others that may be identified later.
139 The Policy Development Team, preferably consisting of professionals with stellar experience in action and policy research, would need expertise or
specialization in such fields as economics, including agricultural economics, business management or administration, public administration, law
including Shari’ah justice, local government administration, taxation, banking and finance, and others that may be identified by the BTA.
140 It may be necessary to create a joint ARG-BTA Turnover Committee to settle problems encountered in the turnover of reports, physical assets,
personnel, documents/records, and financial assets. The committee’s formation could be discussed by the ARG and the BTA early on.
141 The TPMT is mandated to monitor the implementation of the CAB.
142 About six intergovernmental bodies are identified in the “Annex on Normalization,” together with mechanisms to facilitate consultative process
between the parties in the appointment, employment and deployment of the existing police force and the Traditional Justice and Reconciliation
Commission. Those bodies are germane to the issue of security.
143 Two laws on local governments apply in ARMM: the Muslim Mindanao Act No. 25 (approved by the Regional Legislative Assembly in 1994) and
the Local Government Code (LGC) of 1991. The latter devolved functions from the Central Government to LGUs, including functions pertaining to
delivery of social and economic services such as health, agriculture, social welfare, and environment. Under the LGC, LGUs are entitled to their
respective shares in internal revenue allotments (IRA) to fund the performance of those devolved functions. On the other hand, MMA 25 did not
devolve functions relating to the delivery of health, agriculture, social welfare, and environmental services. Most ARMM LGUs, notwithstanding
receipt of IRA allocations from the national government, refuse to perform those four aforementioned functions because according to them, these
have not been devolved.
144 See Guerrero, Barra, Mangahas, and Licudine (2007).
145 Presidential Decree 1083 requires judges in the District Courts to have the same qualifications as their counterparts in the regular court system, as
well as passing the Shari’ah bar. Shari’ah Circuit Court judges are required to have high school education and to have passed the Shari’ah bar.
130
Proposed Implementation Arrangements and Financial Modalities
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Proposed Implementation
Arrangements and
Financial Modalities
131
13
Proposed Implementation
Arrangements and
Financial Modalities
The experience of the ARMM shows that well-planned
The establishment of the Bangsamoro Government will
interventions with significant financial support from
see a transition from Central Government-led delivery
the Central Government and ODA partners are not
to full ownership by the Bangsamoro, initially through
enough to deliver stability and prosperity in the absence
the BTA and eventually through the Bangsamoro
of strong, transparent, and inclusive implementation
Government. The implementation arrangements of
arrangements. While the technical recommendations
the BDP therefore need to remain flexible to account
lay out a framework for stabilization and socioeconomic
for the mandate of the BTA to design the institutional
recovery of the Bangsamoro, the ability of the
structure for the Bangsamoro Government. Until
Bangsamoro Government to deliver lasting change rests
the establishment of the BTA, existing Bangsamoro
on the institutional arrangements and processes for
institutions, including the BDA and the BLMI, will work
implementation.
closely with Central Government agencies and ARMM
A. General Principles
The CAB emphasizes the leadership of the Bangsamoro
in planning, delivering, and monitoring socioeconomic,
political, and cultural interventions in the Bangsamoro. It
commits the parties to cooperation for its implementation
and to continuing multisector dialogues that ensure
inclusivity, accountability, and gender balance to all
stakeholders in the Bangsamoro. These principles anchor
the proposed implementation arrangements for the BDP.
The BDP is also mandated by the CAB to guide overall
alignment of all post-Agreement economic interventions
in the Bangsamoro, regardless of funding source.
Implementation will, therefore be based on partnership
among the Bangsamoro, the GPH, and development
partners to provide the needed technical assistance funds
and operational support, while building the capacity
agencies, private sector investors, LGUs, civil society,
and international development partners to deliver
development programs.
Development efforts shall encourage a bottom-up
approach,
consciously
empowering
Bangsamoro
citizens to actively participate in decision-making,
implementation,
and
monitoring
and
evaluation
of interventions in their communities. There are a
number of civil society networks and organizations in
the Bangsamoro that are active in monitoring public
service delivery. The strong links and relationships that
the MILF has forged with CSOs will be drawn upon to
strengthen the relationship between the state and society
and encourage increased accountable governance that
is “people-centered.”
B. Proposed Implementation Arrangements
of the BTA to assume all the devolved powers of the
Article XVI, Section 7 of the proposed BBL states that an
Bangsamoro upon its establishment.
Interim Cabinet shall be created under the BTA. It shall
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be composed of 10 primary offices, with sub-offices for
The BTA may empower the interim Chief Minister to
matters covered and priority ministries, as follows:
create other ministries and primary offices, upon a
determination of the majority of its members that these
1. Governance—in charge of budget and finance,
are necessary for achieving the twin goals of continuity of
accountability, and such similar or other related
social services and transitioning to the regular Bangsamoro
matters
Government.
2. Social Services—in charge of social welfare, and
such similar or other related matters
Recognizing these guiding principles, and in the spirit of
3. Development—in charge of transportation and
a partnership, the proposed institutional arrangements
communications, regional investments, trade and
for delivering development projects during the transition
industry, agriculture, forestry and environment,
period is presented in Figure 32.
urban and rural development, and such similar or
other related matters
It is envisioned that two funding mechanisms will be
4. Education
created to support the transition: The Bangsamoro
5. Public Order and Safety
Trust Fund, and a Normalization Fund. Given the
6. Indigenous Peoples Affairs
highly intertwined needs of the combatants and their
7. Health
communities and that of the Bangsamoro as a whole,
8. Public Works
it is imperative that socioeconomic and development
9. Local Government
assistance be closely coordinated to produce a synergistic
10. Finance
impact on the overall welfare of the Bangsamoro people.
Figure 32: Proposed Implementation Arrangements
Source: BDP-CPT
133
Close coordination between the JNC and the BTC/
as smoothly as possible to guarantee uninterrupted
BTA will be forged during the transition period. A
provision of basic services to the Bangsamoro people.
Coordinating
will
There is also the added challenge of accelerating the
be established to regulate the administration and
provision of these services, considering the need to
coordination of socioeconomic interventions in the
narrow the huge development gaps between the BCT
Bangsamoro during the transition.
and the other regions of the country. Combined with
Body
for
Development
(CBD)
the shortage of personnel in the BCT who are assigned
The CBD will set policy directions, strengthen linkages
to deliver these basic services, there will be a need to
between the Bangsamoro Government and national
introduce innovative institutional arrangements, on
government agencies, and ensure the alignment and
an ad hoc basis for two to three years, until existing
strategic complementation of development programs with
ministries within the BTA and the Bangsamoro
the BDP and BDF. The head of the BTC/BTA will chair
Government are adequately capacitated.
the CBD with suitable representation from the national
and ARMM governments, the BDA and the BLMI, the
Task forces can be created to provide specific services
Third Party Monitoring Team, the International Contact
(i.e., provision of safe water, immunization of infants
Group, civil society, private sector, and international
and children, conduct of adult literacy programs,
development partners, subject to agreement of the
etc.) and reporting directly to a CBD composed of
parties.
representatives of the Bangsamoro, national government
agencies, and development partners.
A technical committee should be formed to support the
operations of the CBD, communicate socioeconomic
Outsourcing of such services to INGOs, local NGOs, or
development in the Bangsamoro, and oversee the
reputable institutions specializing in the needed service
monitoring and evaluation of the plan.
is recommended to ensure that service delivery is run
by capable and professional staff who can quickly
Bangsamoro-led institutions, such as the BDA and the
deliver the service, particularly during the transition
BLMI, will lead the implementation in collaboration
period.
with
relevant
national
and
regional
government
counterpart agencies, specialized Bangsamoro agencies,
C. Relationships with Key Partners
and development partners as appropriate. Civil society
will play a critical role in bottom-up accountability of
financing and results.
C.1. Phase I (From 2015 to Mid-2016)
C.1.1. Relationship with ARMM
A Results-based Monitoring and Evaluation (RbM&E)
Since the ARG’s mandate, structures, and budget
body will be created to ensure full transparency,
allocation under the General Appropriations Act
accountability, and efficiency of delivery. Ministry-
will cease only upon installation of the BTA,
specific RbM&E units may also be lodged with the
close coordination among the ARMM, the Central
different Bangsamoro-led implementing institutions. Each
Government, and Bangsamoro institutions will be
ministerial unit will be directly accountable to the overall
imperative to ensure uninterrupted delivery of basic
RbM&E body.
services
and
the
accelerated
implementation
of
development projects in the Bangsamoro area. Existing
It is important that the transition from the ARMM to
development programs under the ARMM for FY 2014
the BTA and to the Bangsamoro Government proceeds
and FY 2015 are accordingly factored into the BDP.
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C.1.2. Relationship with Normalization Bodies
Section G of the Annex on Normalization stipulates
that “efforts shall be made to align socioeconomic
interventions with the overall Bangsamoro Development
Plan.” As such, the CBD shall establish relationships
13
of socioeconomic activities may be discussed by the
intergovernmental relations mechanism.
D. Role of Community Leaders and
Organizers
(see Figure 32) with the transitional bodies under the
For reforms in the Bangsamoro to be introduced
normalization process, including the Joint Normalization
effectively, the impetus for change from the top will
Committee (JNC) and the task force mandated to oversee
need to be complemented by contributions from local
the socioeconomic development of the six identified MILF
communities, especially in critical areas. Capacity-
camps. This shall further guarantee the balance of short-
building and participatory engagement at the local
term confidence-building peace dividend requirements
level will be necessary to rebuild social cohesion and
with medium- and long-term development goals.
set the foundations for rule of law, transparency, and
C.1.3. Relationship with Private Sector Investors
accountability mechanisms to promote good governance
and sustainable development.
In recognition of the private sector’s role in developing
private-public
Community-Driven Development (CDD) and Community-
partnerships and other methods of encouraging the active
Driven Reconstruction (CDR), as in the MTF-RDP and
engagement of the business sector in the Bangsamoro’s
the ARMM Social Fund, have proven to be effective
economic transformation will be promoted.
methods of promoting community participation in the
sustainable
livelihood
opportunities,
implementation of development projects in impoverished
C.2. Phase II (From Mid-2016 to 2019)
and conflict-affected areas in Mindanao. They promote
Upon dissolution of the BTA and election of the
a participatory process in identification, selection and
Bangsamoro Government in mid-2016, implementation
functions shall be transferred to the relevant ministries of
implementation of projects, strengthen social cohesion,
and promote transparency and accountability. The
the Bangsamoro.
networks of community organizers and facilitators from
To support the vision of a self-reliant Bangsamoro, an
leveraged to encourage continued community feedback
exit strategy for transitional/external support structures
established in Phase I shall be developed for Phase II,
with clear timelines and metrics for building institutional
current and previous CDD programs in Mindanao can be
into the development planning process and as field based
monitors of effective implementation.
capacity in regular organs of the Bangsamoro government.
E. Training and Strategic Research
This may be formulated in conjunction with the GPH and
While the BDA is experienced in the implementation of
MILF Panels and the Third Party Monitoring Team (TPMT),
CDD/CDR through the MTF-RDP, the BLMI, by the very
as a possible contribution to the socioeconomic aspects
nature of the organization, should specialize in training
of the Exit Agreement upon the full implementation of
potential leaders of the Bangsamoro in “operational
the CAB, the signing of which shall signal the official
excellence”
termination of the peace negotiations between the GPH
development projects).
(i.e.,
managing
and
implementing
and the MILF.
A separate body may also serve as a Bangsamoro
Further delineation of the Bangsamoro’s continuing
“think tank,” or policy and strategic research unit, to
relationship with Central Government in the conduct
tackle policy and strategic issues that will confront the
135
Bangsamoro Government and to provide the policy
process, funding stream, and risk metric—it is imperative
position for various Bangsamoro units in dialoguing with
that the overall funding and aid management architecture
their national agency counterparts. Local organizations
reflects the spirit and intent of the Agreement, in honoring
currently engaging in this arena include the Institute of
the partnership between the GPH and the MILF, while
Bangsamoro Studies (IBS) and the Bangsamoro Study
allowing for the Bangsamoro’s leadership and continuous
Group (BSG). Both have demonstrated marked capacity,
capacitation as it prepares for autonomous governance.
but will require various additional specialists (i.e., in
economics, agriculture and agribusiness, statistics and
Another key challenge is to use these various funding
econometrics, fiscal management, etc.) in their rosters.
platforms, regardless of the funding source, in pursuit of
a unified, coherent, and well-coordinated strategic agenda
F. Possible Financing Modalities
to rebuild the Bangsamoro, with maximum transparency,
Given the post-Agreement landscape of the Bangsamoro,
implementation of the BDP will require a mix of funding
mechanisms and channels, covering both national
government
and
bilateral
and
multilateral
donor
modalities.
The following sections recommend funding options as
applicable to Phase I and Phase II implementation.
F.1. Phase I (From 2015 to Mid-2016)
The CAB specifies three special funding mechanisms
to be established and implemented by the transition
government:
While the financing modalities for the Bangsamoro are
delineated, and prior to establishment of the BTA, existing
programs and budget platforms would need to be rapidly
aligned with the requirements of the transition process.
1. A block grant from the Central Government as
an automatic appropriation to the Bangsamoro
Government, the specific formula for which is
provided in the BBL;
amount for rehabilitation and development after the
ratification of the BBL; and
Trust
This would include:
a.Central Government budgetary allocations for the
Bangsamoro region’s special development needs;
b. The ARMM budget for FY 2015, including program
2. Special Development Fund (SDF), a specified
3. Normalization
speed, efficiency, and accountability.
Fund,
funds for special development programs such as
PAMANA;
c. Multi-donor
trust
governance structure
which
may
pool
government funds and multilateral donor support
for activities relating to normalization. The CAB
provides for setting criteria for eligible financing
schemes, which include “priority areas of capacitybuilding, institutional strengthening, and economic
fund(s)
146
with
an
inclusive
that can provide on- and
off-budget support to a wide range of implementing
partners; and
d.Bilateral donors supporting direct execution and
channelled funding arrangements.
F.1.1. Government Funding
facilitation for return to normal life affecting
In light of the Aquino administration’s policy of
combatant and noncombatant elements of the MILF
heavy peacebuilding investments, as in the case of
and their communities, and the Bangsamoro People.”
the ARMM-TISP and PAMANA, it is expected that the
Central Government will retain significant funding and
Despite the variety of modalities and platforms available—
operational responsibilities until the BTA is in place,
each with a different goal, timeframe, decision-making
particularly for normalization.
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For FY 2015, realignment of existing fund sources, including
Program (IARCDSP), and the World Bank’s Philippine
development programming under the ARMM Regional
Rural Development Program (PRDP) are designed for
Government, is a likely “bridge” scenario until the formal
sector-specific socioeconomic interventions. Where
SDF is set as provided for by BBL and mobilized through
relevant and appropriate, ODA partners should consider
the General Appropriations Act.
how to align their existing programs with the BDP.
Given the nature of post-conflict reconstruction and
F.1.4. Multi-Donor Trust Funds
rehabilitation, however, budget lines will need to be
Experience shows that fund-pooling mechanisms, in
fungible and quick-disbursing, with built-in flexibilities given
the form of multi-donor trust funds (MDTFs) are central
that final programming will be based on extensive needs
to efficient and coordinated ODA support in post-
assessments as provided for by the CAB. Such flexibilities
conflict financing environments. MDTFs have proven
would be crucial in meeting community expectations and
to be important instruments for policy dialogue and risk
restoring confidence. Lengthy delays due to bureaucratic
management, and can provide a platform for effective
disbursement processes would need to be avoided at all
resource mobilization and broad participation around
costs, without sacrificing good public financial management
the BDP.
practices.
Similarly, the use of MDTFs can ensure predictability
F.1.2. Private Sector Investment
and flexibility of financing, streamline Bangsamoro and
It is expected that the public sector will play a crucial role in
national government coordination with contributing
job creation and provision of social safety nets until private-
donors, and lower transaction costs to ensure that more
sector investments come in. However, as stated in earlier
funding support is channeled to development projects
sections, public works programs and cash-for-work schemes
instead of administrative and fiduciary costs.
will not be enough, and efforts will need to be made
to encourage private investments to generate extensive
More than one MDTF may also be created, tailored
income earning opportunities even as the transition is still
to specific technical requirements. The Bangsamoro
in progress.
Normalization Trust Fund as provided for in the CAB,
F.1.3. Official Development Assistance (ODA)
for example, can be complemented by a longer-term
facility for broad development needs. Alternatively, a
A wide variety of ODA-funded programs are currently
broader facility with a common governance structure
programmed for the ARMM and the transition.
can be established with multiple windows addressing
the different financing needs for the various programs.
Some, such as the MTF-RDP, the WB-UN Facility for
Advisory Support for Transition Capacities (FASTRAC),
and
JICA’s
Comprehensive
Capacity
F.1.5. Bilateral Arrangements
Development
While consolidation of funding around an MDTF or
Project (CCDP) are geared to support the technical
similar coordinating platforms is preferred, this is likely
requirements of the GPH-MILF peace process, while
to be supported by bilateral or other kinds of pooled
others, such as the Australian-funded Basic Education
assistance for specific sectoral needs. This can range
Assistance in Mindanao (BEAM-ARMM), Japan-Bangsamoro
from direct-execution type of arrangements to channel-
Initiatives for Reconstruction and Development (J-BIRD),
funding through UN agencies and NGOs. Budget
JICA’s Mindanao Sustainable Agrarian and Agriculture
support to the BTA may also be encouraged, pending
Development Project (MINSAAD), Italian Assistance to
the setup of sound financial management systems and
the Agrarian Reform Community Development Support
ground-level delivery mechanisms. Although working
137
through national institutions is initially slower than
Bangsamoro is likely to attract substantial investments
direct execution by international agencies, it offers
during the transition period, but will need to lock in
greater prospects for sustainable outcomes. In all cases,
donor commitment on the basis of the perceived or
maintaining coherence to the BDP’s agenda would be
attained quality of economic policies, institutions, and
paramount to ensure maximum strategic impact and
governance.
avoid fragmentation.
F.2. Phase II (From Mid-2016 to 2019)
If peace and stability is secured in the Bangsamoro,
it is anticipated that there will be significant private
Once the Bangsamoro Government comes to power
sector interest in locating their operations in the area.
in mid-2016, the Bangsamoro block grant as provided
Vast areas of fertile lands and expansive coastal strips
for in the BBL will be disbursed to the parliamentary
in geographically advantageous locations protected
government for its direct control. While SDF and
from the ill-effects of climate change, benefitting from
other established modalities will remain in place, the
rich deposits of mineral and non-mineral resources,
Bangsamoro will need to confront issues of internal fiscal
and inhabited by relatively skilled workers provide
management, both on how revenue is raised and how
strong incentives for the private sector to participate
expenditures are implemented.
in the region’s economic growth efforts. Given the
huge capital, knowhow and technology in the hands
Another challenge will be continuing to attract large
of the private sector, they will play a leading role
and sustained inflows of international aid in Phase II
in promoting the growth and development of the
and beyond. As in typical post-conflict scenarios, the
Bangsamoro economy.
NOTES
146 The main elements to be decided in setting up a MDTF are: (a) choice of Administrator; (b) governance structure; (c) the nature of the funding
model, including degree of earmarking; and (d)) channels for disbursement (e.g., on-budget, off-budget, or a mix of the two; and potential
implementing agencies). In all these elements, the GPH and international development partners have rich experience to tap to avoid past
weaknesses of previous MDTF arrangements.
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Challenges and Mitigating Measures
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14
Challenges and
Mitigating Measures
139
14
Challenges and
Mitigating Measures
Though of critical importance to ensuring stability and
replication programs could be undertaken in other
normalization over the short and the medium term, the
areas.
BDP as a development plan is constrained in delving
deep into the political, administrative, and security
b. Land Disputes. These have caused many violent
aspects of the peace process. However, the CAB and
conflicts and are keenly felt particularly in Lanao
its Annexes provide for establishment of a number
del Norte, Lanao del Sur, North Cotabato, and parts
of institutions specifically mandated to address these
of Maguindanao. There is need for a dedicated body
concerns. This chapter calls attention to these non-
to address these, and for pertinent empirical studies.
socioeconomic issues and offers possible mitigation
A Bangsamoro land use map could be developed to
measures for consideration by these institutions. The
help protect watersheds and to promote judicious
following political, administrative, and security concerns,
use of lands, given that increased interest in mining
among others, will need the immediate attention of the
is anticipated, which would generate employment
Bangsamoro
and revenues.
decision-makers,
Central
Government
officials, donors, and other peace stakeholders.
c. Need for Inclusivity. Inclusivity is needed at
a. Security Problems in Bangsamoro Core Territory.
various levels, such as in: (a) decision-making so
The results of the CVEs in BCT reveal growing
that various stakeholders will be involved and
lawlessness in the island provinces and in Central
besides the Bangsamoro, will be encouraged to
Mindanao, such as in the case of kidnap-for-
participate actively and genuinely in the process;
ransom activities and drug trafficking. Most of the
(b) recruitment of Bangsamoro Government staff, so
incidents have remained unreported. The residents
that competence will be the foremost consideration,
have identified this situation as a major source of
regardless of ethnic, religious and group affiliation;
insecurity and violence that make life extremely
and (c) distribution of “peace dividends” among
difficult for ordinary citizens. The Bangsamoro
the various stakeholders, to avoid perception of
Government and the Bangsamoro regional police
favoritism or patronage.
force will need to counter the operations of these
140
criminal groups. A fragile law and order situation
d. Need for a Clearer Definition of the Working
would make development projects difficult to
Relationships between Bangsamoro Government
undertake. Where there will be progress and
and LGUs. The latter are needed for effective and
lessons learned in countering these criminal groups,
efficient delivery of basic services to communities.
a monitoring system could be put in place so
This is also necessary because, unlike LGUs outside
Challenges and Mitigating Measures
CH A PT ER
14
of ARMM which are mandated/expected to deliver
the passage of the BBL. Once the BBL is approved,
services to their constituents and for which the IRA
preparation will be underway for a plebiscite
(internal revenue allocation) is provided for by the
within 120 days. With time needed to canvass
national government, LGUs in the ARMM are not
votes, officially declare areas under the jurisdiction
mandated to provide these services in view of MMA
of the BCT, and formally appoint BTA members,
No. 25, passed by the ARMM Regional Assembly in
the BTA may be officially established in late 2015
1995. The result is that LGUs in the ARMM use their
at the earliest. The BTA will have barely three to
IRAs based on identified priorities by local officials
four months to deliver expected peace dividends
rather than prioritizing delivery of basic services to
before the start of the campaign period for the 2016
their constituents since MMA 25 had the effect of
national elections.
assigning that primordial function to the regional
government.
g. Manpower
Shortage.
Many
of
the
region’s
highly qualified people have left because of
e. People’s Expectations. The signing of the FAB and its
the
protracted
conflict.
Without
them,
the
Annexes and of the CAB has raised high expectations
Bangsamoro Government may find it difficult to
among the Bangsamoro people that stability will be
govern effectively. This urgent issue will need
immediately attained and that there will be quick
to be addressed in the transition period to ensure
and drastic improvement in their lives. Post-conflict
immediate delivery of results.
experience worldwide show hindrances in the
path of any peace process. It includes bureaucratic
A “Balik-Bangsamoro” program is included as a
administrative processes of governments and donor
priority in the BDP to address capacity inadequacy
partners that slow down the delivery of development
in activities requiring high technical competency.
projects. These rising expectations, therefore, should
However, it will likely create an incentive
be managed properly by leaders on both sides of the
imbalance among Bangsamoro professionals. The
peace process.
Bangsamoro Government would have to assure
its constituents that this incentive imbalance is
f. Time Constraints. The short timeframe for the transfer
a necessary but temporary measure for ensuring
of powers and responsibilities from the ARMM to the
delivery of peace dividends, while the capacity of
Bangsamoro Government presents risks in managing
young Bangsamoro professionals is being built to
expectations and ensuring uninterrupted delivery
take the reins of leadership in the immediate future.
of basic services. This is aggravated by the delay in
141
142
Results-Based Monitoring and Evaluation Framework
CH A PT ER
15
15
Results-based Monitoring
and Evaluation Framework
143
15
Results-based Monitoring
and Evaluation Framework
Results-based Monitoring and Evaluation (RbM&E) is an
strong understanding of performance of development
essential component of this Plan. It describes a system
programs and projects in the region. It will document
that will track the performance, results, and quality, as
lessons learned in the implementation of recommendations
well as evaluate the outcomes and impacts of programs
and programs, which will be useful for future planning
and projects identified in the BDP during the transition,
beyond the transition period.
on a periodic basis. The BDP-RbM&E system will be
useful for effective programming and strategic planning
Apart from the RbM&E, the BDP will also explore other
while
accountability
participatory and mixed methods in evaluation. It is
to the Bangsamoro constituency. With systematic
important that evaluation for social change demonstrate a
collection and analysis of relevant data, the findings and
connection from results-based to learning based evaluation.
recommendations that will come out of the RbM&E will
The BDP is aimed at ensuring that the evaluation process
inform policy making for the Bangsamoro, based on hard
will facilitate the capacity of the Bangsamoro to become
evidence.
learning-based
it
supports
transparency
for
communities
as
an
integral
part
of
sustainable human development.
This chapter proposes an RbM&E framework to monitor
phase by phase the attainment of development targets,
the quality of activities and outputs, and the resource
allocation. The monitoring component also spells
out how the reporting of progress will be made, what
management structure or option will be adopted to
implement RbM&E successfully, and what mechanisms
should be in place to identify problems and issues
encountered during the implementation of development
programs and projects outlined in the BDP, and ways to
address them.
The framework also provides the basis to evaluate
outcomes, impact, results and performance—what would
work and what would not. It lays out the initial criteria
for evaluation and summary descriptions of key methods
that are applicable to the Bangsamoro, to produce a
144
A. Objectives
The overall purpose of the BDP RbM&E is to measure
and clearly assess the progress of programs and projects
identified in the BDP in order to manage development
results. To achieve this aim, the RbM&E will undertake the
following:
1.Provide a management information system to track
progress of activities;
2.Provide both quantitative and qualitative data by
which performance will be assessed against desired
targets and results;
3.Involve stakeholders in learning and informing
decisions
to
development
Bangsamoro;
improve
the
programs
and
implementation
projects
in
of
the
Results-Based Monitoring and Evaluation Framework
4.Build
capacity
of
relevant
agencies
in
the
Bangsamoro to implement RbM&E effectively; and
CH A PT ER
15
3.Evidence-Based. The RbM&E will track and validate
outcomes and performance against desired results.
5.Support transparency for greater accountability
It will also document attainment, any departure
to the public using “Open Data” as anchor of the
from attaining the results, and the justifications for
BDP-RbM&E.
achievement or non-achievement. The assessment
will be done on a periodic basis. A rigorous and in-
B. Guiding Principles
depth assessment will be undertaken to gauge the
The BDP RbM&E shall adhere to the following guiding
principles:
non-target communities. Evidence will be obtained
through systematic data collection and validation,
1.Managing for Results. Monitoring will focus
on outcomes that are geared toward achieving
results. There will be periodic monitoring of
progress of various indicators, which will then
be compared to the baseline and targets. The
outputs of each project and programs in the
six
impact of BDP programs of interventions to target and
strategic
areas
of
intervention
(economy
and livelihood; social services; infrastructure;
environment and natural resources; culture and
identity, and governance) and their contributions
to achieving desired outcomes will be continuously
monitored. Monitoring inputs and key activities
will be integrated with monitoring outcomes
and results. Managing for results will require: (i)
establishment of baseline data and targets; (ii)
selection of indicators that captures outcomes; and
(iii) designing and streamlining mechanisms and
processes, including tools for data collection, data
and skills validation, consultations, and reporting.
2. Problem-Solving Based. The indicators and tracking
of progress will be based on the relevant policy
questions and priority areas that the transition
government would like to address. A problemsolving-based configuration has the advantage
of producing clear, focused, demand-driven and
results-oriented outcomes. A similar approach is
being pursued by the Open Data Initiative in the
ARMM, which the BDP-RbM&E can build on to
establish and adopt a performance-based framework
in managing resources.
reporting of progress, and evaluation activities.
4. Analysis. To improve the implementation of the
overall BDP strategy and the activities identified in
the six strategic areas of intervention, monitoring
and evaluation shall draw out critical analysis of
processes, relevant indicators and their relationships
to understand achievement and non-achievement
of outcomes. Monitoring and evaluation shall not
be confined to descriptive summary of statistics and
events. Analysis will pave way for learning.
5.Focused on Utilization. The RbM&E will be for
learning and accountability purposes. It will test
fundamental questions about the BDP program
and project designs and their implementations
while
providing
practical
lessons
learned
and
actionable recommendations for future development
programming when the Bangsamoro Government is
in place.
6.Transparency and Accountability. Setting up a
monitoring and evaluation system is for the purpose of
improving capacity, transparency, and accountability
by the Bangsamoro agencies to the public. The system
will inform the public not only about progress but also
about cost-effectiveness, efficiency as well as value
for money. It will hinge on the Open Data Initiative
especially in the collection and validation of baseline
data. The output of producing a common repository of
data and maps using user-friendly platforms and tools
145
and the lessons learned experienced by the ARMM
established capacity in M&E, various national line
in M&E will be essential for the Bangsamoro.
agencies—including NEDA, PSA, and the statistical
The RbM&E will engage the community in the
units of functional national line agencies—have
collection and validation of relevant data to foster
accumulated a wealth of best practices and lessons
social accountability.
that the BDP RbM&E Body could use. Coordination
with the ARMM on establishing baseline data shall
7.Independence. The RbM&E Body must be an
also be conducted during the transition period.
independent unit directly accountable to the BTA
or the Office of the Chief Minister to maintain
9. Inclusiveness. All data will be disaggregated by
its integrity in carrying out its monitoring and
gender, sex and, where possible, other social
evaluation
classifications
functions.
Every
Bangsamoro-led
relevant
to
the
unique
social
implementing institution will have an RbM&E unit,
landscape of the Bangsamoro, such as ethnicity and
and each unit will be directly accountable to the
religion, to ensure inclusiveness.
BDP RbM&E Body.
Annex G (Results-Based Monitoring & Evaluation
8.Coordination. The RbM&E Body will closely
Framework) provides details on the BDP RbM&E
coordinate with the small RbM&E units and the
Framework, including its scope, logical framework and
various implementing agencies, through the CBD,
initial list of indicators to be monitored.
for building the database and for monitoring. With
146
A N N EX ES
Annexes
Annexes
147
ANNEX A: BDP Priority Programs
Objectives
Priority Programs
Components
A. Economy and Livelihood
Increasing farm productivity
and income
Bangsamoro Sustainable Agriculture
Program
Assisting in ensuring food
security particularly to
vulnerable groups
Increasing halal-certified
providers
Higher labor force participation
(especially for inactive youth)
Massive Job Creation Packages, including
Creative Service Delivery
Higher household income
Bridging the labor supply gap
• Scholarships/trainings, functional literacy
programs, skills and jobs matching
• Support for micro and small entrepreneurs
• Cash-for-Work tied to public projects
• Hiring of community facilitators for scaled-up
community-driven development (CDD-BRIDGE)
• Mass mobilization of health and education workers
Balik-Bangsamoro Program
• Incentives for increased banking/investment in
the Bangsamoro, including remittances
• Incentives for young Moro professionals
(scholarships and trainings, with required technical posts)
Trade openness (long-term)
Establishing Open Trade in the Bangsamoro
• Feasibility studies for Polloc and Bongao Ports
and other areas as manufacturing and trading hubs in the
Bangsamoro
• Mainstreaming cross-border trade
• Study on the impact of adopting an open
trading policy in the export processing zones
• Representation of Bangsamoro Government
and private sector in trade missions and negotiations
Improving access to credit
Banking and Finance
• Microcredit (including Shari’ah-compliant
finance)
• Study on promoting the development of Islamic banking
and finance
Peace Tourism: It’s Even More Fun in the
Bangsamoro
• Scoping for eco-, cultural, and resort tourism
(Central Mindanao, Tawi-Tawi)
• Specific normalization efforts (governance and security)
• IEC campaign, skills training (livelihood)
Bringing back human and
financial capital from overseas
Support for long-term fiscal
autonomy and development
(for medium- to long-term
measurement)
148
• Support for smallholder farmers and fishers,
including enterprise development and training and
incentive programs
• Irrigation, postharvest facilities
• Support to private sector value chain and
commercial development
• Development of the halal food industry
(including organic farming)
• Integrated Area Development, including study
on how to transform MILF camps into flourishing
enterprise units in the Bangsamoro
• Study of promoting climate-resilient agriculture
through integrated area development planning
Assessing/Prospecting the Viability of the
Extractive Industry Sector
• Development of geological database
• Analysis of institutional and capacity
development requirements for management and
regulation of extractive industries
• Feasibility studies of development of the extractive
industry.
A N N EX ES
Objectives
Priority Programs
Components
B. Infrastructure
Increase volume of passengers
and goods, road density
electricity
Enhance capacity of Bangsamoro
communities to adapt to climate
change and undertake DRRM
for social justice and to mitigate
displacement
Strengthening the Bangsamoro
Infrastructure and Logistics
System
Energy
CCA/DRRM-Responsive
Infrastructure
• Roads and bridges (FMRs), airport and seaport upgrading
for the islands
• Developing a transport and logistics masterplan
(including a dedicated plan for FMRs) for the Bangsamoro that
identifies and prioritizes road network development of FMRs,
municipal, provincial and national roads
• Tapping the river network of the BCT as alternative and
low-cost mode of transport
• Feasibility study on reopening Balo-i Airport and
development of an international airport for the
Bangsamoro
• Establishment of quick roads/bridges repair and
maintenance system in the BCT
• Energy and household electrification investments (grid
and off-grid)
• Identifying mechanisms on the use of Lake Lanao waters
for power generation
• Establishing mini-hydro electric powerplants
• Revisiting and reviewing the mini hydro power generation
study
• Inventory and assessment of renewable energy sources,
including feasibility and engineering studies
• Renewable energy development plans for BCT provinces
• Showcasing stand-alone household and community
renewable energy applications
• Strengthening Bangsamoro Electric Cooperatives through
better partnerships with private investors and institutional
development programs
• Ambal-Simuay River Flood Control
• Slope Protection
• Creating and maintaining partnerships with local
communities for watershed protection and rehabilitation
programs
C. Social Services
WaSH
Water, Sanitation and Hygiene
(WaSH)
Increase access to quality health
services and reduce risk of conflict
reversal
Health
Improve access to quality
education and reduce risk of
conflict reversal, toward creating
a skilled and able workforce in the
Bangsamoro
Education
• Scaled-up access to water and sanitation facilities through adoption
of graduated and integrated approaches to WaSH development
•
•
•
•
•
Provision of PhilHealth cards
Mass immunization and feeding programs
Health caravans
Upgrading of health facilities
Creative delivery mechanisms: mainstreaming of BIAF
medics, traditional healers
• Technical and vocational skills training including
entrepreneurship
• Functional literacy programs for out-of-school and inactive youth and
illiterate adults
• Private sector apprenticeship for out-of-school youth
• Curriculum development and review of madaris system
(ibtidaiya, thanawiya, and kulliya)
• Supply-side inputs for primary and secondary education
• Modified “GI Bill Veterans Benefit packages” for families of MILF
combatants
• Mobilization of alternative teachers
149
Objectives
Priority Programs
Components
Increase % of population with
secure housing tenure
Sustainable Bangsamoro Settlements
• Special Housing Needs Assistance Package for IDPs
• PPP for socialized housing
• Policy reform on land rights, housing tenure security for
economically-displaced Bangsamoro
Provide safety nets and
increase access to services for
vulnerable groups
Protective Services
• Packages for vulnerable groups: senior citizens, PWDs,
women, widows, youth, orphans, etc.
D. Environment and Natural Resources
Environmental Governance
To preserve the ecological
integrity of the Bangsamoro in
the context of comprehensive
150
• Formulation of a comprehensive framework for
sustainable development in the Bangsamoro comprising
key legislative measures and a Strategic Environmental
Management Plan (SEMP)
• Capacity development of Bangsamoro environment and
sustainable development institutions, including creation
of a Bangsamoro Sustainable Development Board (BSDB)
and a Ministry of Environment
• Integrated development for Lake Lanao and Liguasan
Marsh
• Strengthening and support for community empowerment
for environmental conservation and protection
• Policy for the Bangsamoro Waters and Zones of Joint
Cooperation
• Comprehensive Biodiversity Assessment of the
Bangsamoro
• Restoration and enhancement of degraded/denuded
forest lands (including nurseries) and coastal and marine
ecosystems
• Establishment of monitoring mechanisms (including
hiring of forest guards and sea guards)
Urban Ecosystem and Waste Management
Program
• Formulation of BCT Sustainable Cities/Towns Model
Plan(s) and initiation of redevelopment
• Development and implementation of a BCT-wide
comprehensive residuals management program
• Establishment and operationalization of LGU-level solid
waste management councils
• Comprehensive waste management program
Reduce land conflict
(short-term and long-term)
Comprehensive Land Administration and
Management Reform Program for the
Bangsamoro
• Mapping and analytical work on land rights and land
conflict
• Strengthening of conflict mediation mechanisms
To enhance Bangsamoro
capacity for climate change
and DRRM
CCA/DRRM for Social Justice and Mitigation
of Displacement
• Comprehensive Vulnerability Assessments
• Formulation of risk-based Comprehensive Land Use Plans
(CLUPs) for all LGUs in the Bangsamoro
• CCA/DDRM capacity-building
A N N EX ES
Objectives
Priority Programs
Components
E. Culture and Identity
Quick-Impact Projects
Assist communities to identify
and preserve their cultural
resources, traditions, values,
practices
Establish and strengthen
cultural institutions to protect,
conserve, nurture, and promote
Bangsamoro’s tangible and
Promote creation and
sustainability of local culture,
heritage, and art groups
through various forms of
incentive assistance
Conservation of Cultural Heritage
• Historical markers
• Bangsamoro public cemeteries (maqaabir al-’aam)
• Policy work on the creation of the Commission on the
Preservation of Cultural Heritage
• Establishment of a Bangsamoro Peace Memorial Museum
Culture and Education
• Grants for textbook writing on Bangsamoro, history,
language, arts, and establishment of Schools of Living
Tradition
Support for Artistic Excellence
• Grants and incentives for community artists/artisans,
researchers, cultural workers
Culture and Development
Culture and Peace
• Support for and mainstreaming of various culturallyresponsive development initiatives: Shari’ah, halal and hajj
• Social marketing and advocacy
• Cultural tourism, Public-Private Partnership
• Dialogue/intercultural initiatives
F. Governance and Justice
Support for Transitional Bodies
Support for the BBL and the Plebiscite
• As provided for in the CAB and BBL
• IEC campaigns, voter registration, etc.
Capacity-Building, Organizational
Development, and Change Management
Requirements from ARMM to BTA
• Training programs on management and leadership,
values transformation
• Scholarships in priority technical courses
• Drafting of ministry transition plans
• Capacity-building for municipalities and barangays
Technical Assistance in Drafting of Key
Administrative Laws
• Based on priorities set by the BBL/BTA
Baseline Data Generation
Transparency and Accountability Program
Access to Justice, including Shari’ah Justice
Fiscal Autonomy
• Data generation across all ministries, including a
comprehensive assessment of location, number, and
status of infrastructure and personnel
• Creation of “Open Data” platform for the Bangsamoro
• Development of anticorruption strategy
• Geotagging and third party monitoring of programs and
projects
• Policy and programmatic work on improving access
to justice, including the Shari’ah justice system in the
Bangsamoro
• Reform of GOCCs, regional economic policy development,
etc.
151
ANNEX B: BDP Governance Structure
The BDP Project Steering Committee (PSC) provided the
Development Program (MTF-RDP) and all its
overall leadership through provision of oversight and
donor partners—the European Union; Australia’s
technical guidance in the formulation of the Bangsamoro
Department
Development Plan (BDP). A Core Planning Team (CPT)
Canada’s Department of Foreign Affairs, Trade
served as the secretariat of the PSC and concurrently
and Development; New Zealand’s Ministry of
acted as the project management unit. The BDP Advisory
Foreign Affairs and Trade, the Swedish International
Council provided technical advice and other assistance
Development Agency; and the United States Agency
to the formulation of the BDP, including facilitating
for International Development—in collaboration
access to the CPT and the Cluster Teams in the conduct
with the Japan International Cooperation Agency,
of their duties/responsibilities and field activities.
the United Nations, the Asian Development Bank,
of
Foreign
Affairs
and
Trade;
the Asia Foundation, the Foundation for Economic
Overall support was provided by the World Bank-
Freedom, and the International Organization for
managed Mindanao Trust Fund-Rehabilitation and
Migration.
Table 30: BDP Project Steering Committee
Name
Dr. Saffrullah M. Dipatuan
Designation
Chairperson
Organization
Bangsamoro Development Agency (BDA)
Executive Director
Office of the Presidential Adviser on the Peace Process
(OPAPP)
Uz. Mohammad S. Yacob, PhD
Executive Director
Ustadz Abdulkadir K. Abdullah
Member, Board of Directors
Usec. Luisito G. Montalbo
Usec. Margarita Songco
Dir. Baintan A. Ampatuan
Mr. Motoo Konishi
Mr. Matthew James Keir Stephens
Deputy Director-General
National Economic Development Authority (NEDA)
Executive Director
Autonomous Region in Muslim Mindanao Regional
Planning and Development Office (ARMM RPDO)
Country Director
The World Bank in the Philippines
Senior Social Development
Specialist
The World Bank in the Philippines
Mr. Noriaki Niwa
Chief Representative
Japan International Cooperation Agency (JICA)-Philippines
Ms. Luiza Carvalho
Resident Coordinator
United Nations
Mr. Guiamel M. Alim
Chairperson
Consortium of Bangsamoro Civil Society (CBCS)
Table 31: BDP Advisory Council
Name
Organization
Mr. Jamel D. Macaraya
Hadji Hashim S. Casinto
Ustadz Abusaliha M. Macacuna
Ustadz Mohamad Taha U. Abdulgapor
Mr. Urooj S. Malik, PhD
Senior Advisor
Ms. Ayesah U. Abubakar, PhD
Senior Advisor
Management Consultant
Engr. Nasser G. Sinarimbo
152
Designation
A N N EX ES
Table 32: BDP Joint Review Committee
Name
Designation
Organization
Dr. Saffrullah M. Dipatuan
Chairman
BDA Board of Directors
Dr. Rizaldy L. Piang
Member
Hadji Taupiq Alagasi
Member
Hadji Hashim S. Casinto
Member
Mr. Jamel D. Macaraya
Member
Ustadz Abusaliha M. Macacuna
Member
Mr. Rhadzni M. Taalim
Member
Atty. Almanzor B. Taug
Member
Hadji Mohamad B. Salih
Member
Ustadz Mohamad Taha U. Abdulgapor
Member
Ustadz Abdulkadir K. Abdullah
Member
Mr. Jun Mantawil
Member
MILF Special Team
Dr. Maguid Makalingkang
Member
MILF Special Team
Mr. Alih S. Anso
Member
MILF Special Team
Mr. Toks Ebrahim
Member
MILF Special Team
Ustadz Mahmod S. Akmad
Member
MILF Special Team
Engr. Abdullatip C. Mustapha
Member
MILF Special Team
Mr. Khaled Amar
Member
MILF Special Team
Note: The committee was tasked by the MILF-CC and BDA to review the technical soundness of the consolidated BDP prior to its publication.
Table 33: BDP Core Planning Team
Name
Engr. Windel P. Diangcalan
Designation
Organization
Team Leader
Mr. Beñamine B. Ubpon
Member
Mr. Rhadzni M. Taalim
Member
Mr. Fermin Adriano, PhD
Member
The World Bank
Mr. Assad Baunto
Member
The World Bank
Ms. Ica Fernandez
Member
The World Bank
Ms. Mitch Abdon
Member
The World Bank
Mr. Nick Leffler
Member
The World Bank
Mr. Emmanuel S. de Dios, PhD
Member
United Nations Country Team
Mr. Hirotaka Kawakami
Member
United Nations Country Team
Engr. Renato Sabado
Member
Ms. Diolina Mercado
Member
153
Table 34: Thematic Area Focal Persons
Name
Mr. Abdulmannan L. Gayak, PhD
Designation
Organization
Economy
Ms. Minang D. Sharief, PhD
Social
Mr. Zainal D. Kulidtod, PhD
Politics
Mr. Guimba B. Poingan, PhD
Culture
Mr. Abdul S. Pagayao, PhD
Security
Mr. Abdul-Jalil S. Umngan
Resources
Ms. Zarah Kathleen T. Alih
Gender, Youth and other
Vulnerable Groups
Peacebuilding
Fiscal Autonomy
Mr. Ismael G. Kulat
Mr. Acram O. Latiph, PhD
Table 35: BDP Support Team
Name
Organization
Mr. Mohammad Abdulfarid M. Delna
Information, Communication
and Learning Officer
(January–August)
Mr. Misuari G. Abdulmanap
Information, Communication
and Learning Officer
(September–Present)
Finance Officer
Mr. Anwar S. Abdullah
Mr. Ismael S. Mamokan, Jr.
154
Designation
Geographic Information System Bangsamoro Development Agency (BDA)
Officer
Ms. Almirah O. Arba
Administrative Assistant
(January-May)
Ms. Sarah G. Panglima
Administrative Assistant
(June–Present)
Ms. Faridiah A. Bandar
Finance Assistant
Mr. Aliuddin U. Haron
TWG Team Leader
Mr. Candao G. Alang
Cashier
Engr. Mohammad Saud Alon
Research Associate
Mr. Jordan M. Juanday
Research Assistant II
Ms. Nishreen Y. Hashim
Research Assistant
Ms. Moniesa S. Husain
Administrative Support Staff
A N N EX ES
Table 36: Thematic Area Consultants
Name
Mr. Luisito Uy
Ms. Rizalyn Vale
Organization
Thematic Area
Philkoei International, Inc./
Economy
Japan International Cooperation Agency (JICA)
Sub-Theme
Agriculture, Fisheries and Agro-Industry
International Labor Organization (ILO)
Economy
UN Food and Agriculture Organization (FAO)
Economy
UN World Food Programme
Economy
Food Security
Mr. Alex Casiple
Foundation for Economic Freedom (FEF)/
Mindanao Trust Fund
Economy
Agribusiness
Mr. Humza Jamil A.T. Olermo
Mindanao Trust Fund
Economy
Halal Industry
Mr. Ikram Tawasil
Mindanao Trust Fund
Economy
Islamic Finance
Asian Development Bank (ADB)
Economy
Regional Cooperation
Mr. Rolando A. Torres
Ms. Marilen J. Danguilan
Ms. Suj Ronquillo, PhD
Mr. Joselito Supangco
Economy
Japan International Cooperation Agency (JICA)
Infrastructure
Engr. Hussein Lidasan, PhD
Japan International Cooperation Agency (JICA) Economy
Infrastructure
Engr. Saeed Gogo
Asian Development Bank (ADB)
Infrastructure
Ms. Pilar P. Bautista, PhD
Australian Department of Foreign Affairs and
Trade (DFAT)
Social
Education
Ms. Rufa C. Guiam, PhD
Australian Department of Foreign Affairs and
Trade (DFAT)
Social
Reproductive Health
Ms. Magdalena Cabaraban
United Nations Population Fund (UNFPA)
Social
Child Health and Nutrition
Mr. Selahuddin Y. Hashim
United Nations Children’s Fund (UNICEF)
Social
Ms. Ma. Victoria Z. Maglana
United Nations Children’s Fund (UNICEF)
Social
Mr. Juan Ragrario
WaSH
The Asia Foundation
Governance
Mr. Hamid A. Barra, PhD
United Nations Development Programme
(UNDP)
Governance
Mr. Asnawil G. Ronsing
The Asia Foundation
Security
Ms. Nadine Ragonjan
The Asia Foundation
Security
Redeployment of the AFP
Ms. Kathline Tolosa
The Asia Foundation
Security
Decommissioning
Shari’ah Justice System
Ms. Maribel Dato
Environment and
Japan International Cooperation Agency (JICA) Natural Resources
Natural Resources (including Mines and
Extractive Minerals)
Mr. Emmanuel Bate
Environment and
Power
Mr. Jemuel Perino
Environment and
Disaster Risk Reduction Management
and Watershed Management
Ms. Amelia Dulce Supetran
(UNDP)
Environment and
Natural Resources
Mr. Benjamin Bagadion
(UNDP)
Environment and
Natural Resources
Mr. Eduardo Queblatin
(UNDP)
Environment and
Natural Resources
Forests and Watersheds
155
Name
Organization
Thematic Area
Sub-Theme
(UNDP)
Resources
Convention and Nonconventional
(Renewable) Energy and Climate Change
Mitigation
Ms. Noela Lasmarias
(UNDP)
Resources
Ecological Services
Mr. Jacob Tio
(UNDP)
Resources
Hazard, Risk and Emergency Response
and Urban Ecosystems Management
Mr. Ronaldo Gutierrez
(UNDP)
Resources
Climate Change Adaptation
Ms. Nerissa Juan
(UNDP)
Resources
Ecotourism
Ms. Amy Lecciones
(UNDP)
Resources
Biodiversity Protection and Conservation
Mr. Francis Benito
Mr. Moner Bajunaid, PhD
International Organization on Migration
(IOM)
Cross-cutting
Ms. Indai Lourdes Sajor
UN Women
Cross-cutting
Gender and Women
Ms. Soraya Ututalum
The World Bank
Ms. Pam Clavio-Galenzoga
The World Bank
Mr. John Christian Castillo
The World Bank
Communications Consultant
GIS
Creative Designer
Ms. Johanna Go
SRDP / JICA
GIS
Ms. Claire Reyes
SRDP / JICA
GIS
Mr. Adelino Racusa
The World Bank
Mr. Jamaile A. Edsa
(IOM)
Technical Working Group
Mr. Nurhadi K. Guiam
(IOM)
Mr. An-Nur H. Haron
(IOM)
Engr. Usman Kamid
(IOM)
Data Management
Table 37: National Government Agencies
Name
Mr. Howard B. Cafugauan
Organization
Assistant Secretary
OPAPP
Director
OPAPP
Ms. Prisci Val Bulanhagui
Office of the Executive Director
OPAPP
Mr. Max Africa
OPAPP
GPH-MILF Panel
OPAPP
OPAPP
Assistant Director-General
NEDA
Director IV
NEDA
Mr. Arvin Chua
Ms. Kristine Wee
Ms. Vanessa Estrano
Ms. Rosemarie G. Edillon
Mr. Jonathan Uy
156
Designation
A N N EX ES
Name
Designation
Organization
Ms. Remedios Endencia
OIC, Director for Regional Development Coordination Unit
NEDA
Ms. Mercedita Sombilla
Director, Agriculture, Natural Resources and Environment Staff
NEDA
Mr. Joseph Capistrano
Public Investment Staff, Asia Pacific Division
NEDA
Senior Economic Development Specialist
NEDA
Ms. Dinna Manlangit
SREDS
NEDA
Ms. Maria Lourdes Lopez
SREDS
NEDA
Ms. Cherryl B. Tienzo
SREDS
NEDA
Ms. Fresi Araneta
Ms. Susan Valerio
Ms. Maria Pilar C. Dagayanon
Mr. Francisco T. Varela
Mr. Roger Masapol
OIC- Assistant Director
NEDA Region 9
Senior EDS
NEDA Region 9
Undersecretary for Finance and Administration
DepEd
Chief, Planning and Programming Division
DepEd
Mr. Austere Panadero
Undersecretary
DILG
Ms. Tina Rose Canda
Assistant Secretary
DBM
Ms. Edilberto de Luna
Assistant Secretary
DA
Ms. Vener Dilig
Senior Agriculturist, Field Operations, Monitoring and Coordination Division
DA
Mr. Rudy Guieb
Director
DA
Assistant Secretary for Visayas and Mindanao Cluster
Deputy Project Director, KALAHI-CIDSS
DSWD
Ms. Vilma Cabrera
Assistant Secretary
DSWD
Ms. Janet Lopoz
Executive Director
MinDA
Director IV, Policy, Planning and Project Development Office
MinDA
Technical Staff
MinDA
Assistant Secretary for Regional Operations in Visayas and Mindanao
DPWH
Project Manager IV of the Project Management Office (PMO)
DPWH
Mr. Camilo Gudmalin
Mr. Reyzaldy B. Tan
Mr. Carlos Ceresa
Mr. Dimas Soguilon
Mr. Abdul Fatak Pandapatan
Dr. Romulo Busuego, MD
Dr. Venancio Ang, MD
Assistant Secretary for the Mindanao Area Cluster
DOH
Medical Specialist II (Technical staff for Bangsamoro Task Force)
DOH
Mr. Roger Masapol
Chief, Planning and Programming Division
Mr. Earl Saavedra
Commissioner Representing Mindanao
NYC
Mr. Mel Santilla Jr.
PSO VI
NYC
Mr. Alvin Alcid
Division Chief
DepEd
NHCP
157
Table 38: ARMM Line Agencies
Name
Organization
Atty. Laisa Alamia
Executive Secretary
Engr. Mlang Madal
Assistant Director
Regional Planning Division Office (RPDO)
Ms. Norolhaya Mamarion-Haron
Planning Officer III
Project Officer V
Ms. Melanie M. Indar
Office of the Executive Secretary
Atty. Macmod Mending
Regional Secretary
Department of Agriculture and Fisheries (DAF)
Mr. Alexander Alonto, Jr.
Assistant Secretary
RFRDC Manager
Ms. Ramla Macatabang
Coordinator
Mr. Kalunsian Dimalen
Chief Operation Division
Mr. Macmod D. Mamalangkap
Ms. Manioba M. Domaot
Ms. Ruby Andong
Planning Officer
Senior TESD Specialist
Bureau of Fisheries and Aquatic Resources (BFAR)
Technical Education and Skills Development Authority
(TESDA)
Mr. Sakiran A. Hajan
Regional Secretary
Department of Trade and Industry (DTI)
Mr. Abubakar Datumanong, PhD
Assistant Secretary
Ms. Susana Y.S. Anayatin, PhD
Chief Technical Managament
Services
Senior Trade and Industry
Development Specialist
Chief Investment Specialist on
Research
Regional Board of Investments (RBOI)
Ms. Sarah Mamdra
Mr. Larzon G. Santos
Ms. Pombaen Karon-Kader
Assistant Secretary
Department of Social Welfare and Development (DSWD)
Ms. Princess Nhahra Mapages
Administrative Assistant III
Department of Social Welfare and Development (DSWD)
Dr. Dibagulun R. Mamainte, MW
Medical Officer V
Department of Health (DOH)
Medical Specialist III
Department of Health (DOH)
Dr. Tato Usman
Mr. Pipalawan Macacua
Education Program Specialist
Commission on Higher Education (CHED)
Atty. Anwar Malang
Regional Secretary
Department of Interior and Local Government (DILG)
Ms. Tonina Mabang
Chief Director/OIC Director
Department of Interior and Local Government (DILG)
Mr. Ardan Sali
Director
Bureau of Cultural Heritage (BCH)
Mr. Toto Biruar
Administrative Officer
Bureau of Cultural Heritage (BCH)
Ms. Fatima Kanakan
Director
Mr. Matanog Mapandi
Assistant Secretary
Department of Energy (DOE)
Mr. Norodin Manalao
Executive Director
Regional Reconciliation and Unification Commission (RRUC)
Mr. Kahal O. Kedtag
Regional Secretary
Department of Environment and Natural Resources (DENR)
Mr. Paul P. Sambulawan
Executive Assistant III
Department of Environment and Natural Rsources (DENR)
Mr. McMillan A. Lucman
OIC- Regional Secretary
Department of Agrarian Reform (DAR)
Assistant Director IV
Department of Agrarian Reform (DAR)
Mr. Pendatun Mambatawan
158
Designation
Mr. Mohammad M. Galo
Chief Information Officer
Mr. Muslimin A. Jakilan
Regional Secretary
Office of the Southern Cultural Communities (OSCC)
Department of Transportation and Communication (DOTC)
Department of Labor and Employment (DOLE)
A N N EX ES
ANNEX C: Relevant National and Regional Development Plans
The President’s
Guideposts/
Social Contract with the
Filipino People
Philippine
Development
Plan 2010–2016
Midterm Update
Mindanao
Development
Strategic Framework
2010–2020 (NEDA)
Mindanao 2020: Peace
and Development
Framework Plan
2011–2030 (MinDA)
ARMM Regional
Development Plan
2010–2016
ARMM RDP
2010–2016
Midterm Update
VISION
1. A reawakened sense of
right and wrong, through
the living examples of our
highest leaders;
2. An organized and widely
shared rapid expansion
of our economy through
a government dedicated
to honing and mobilizing
our people’s skills and
energies as well as the
responsible harnessing of
our national resources;
3. A collective belief that
doing the right thing
does not only make
sense morally but also
translates into economic
value; and
4. Public institutions are
rebuilt on the strong
solidarity of our society
and its communities.
The current PDP
does not clearly
state a vision for
the 2011–2016
period. Rather,
it declares its
overall societal
goal as inclusive
growth, which
is defined as
“poverty reduction
in multiple
dimensions
and massive
creation of quality
employment.”
“A peaceful and
socially-inclusive
Mindanao with a
strong, sustainable,
competitive, ICTdriven, agroindustrial,
and resource-based
economy that
is responsive to
local and global
opportunities.”
“Mindanaons of
all cultural and
socioeconomic
backgrounds have
attained a sustainably
uplifted quality of life
through collective
achievement of a
peaceful, developed,
autonomous and
integrated Mindanao that
is the vanguard for the
country’s sustainable
development.”
“We, the
Bangsamoro
people, under the
guidance of the
Almighty in our
continuing quest for
self-determination,
envision a peaceful,
progressive society
through social
justice, human
equity, responsive
governance with
empowered people,
distinct cultural
heritage and
identity, sustainablymanaged patrimony,
and with established
international amity.”
“By 2015, the
reformed ARMM
is prepared to
transition to the
new Bangsamoro
entity, having
empowered people
and communities
encouraged
by responsive
government
propelled by
improved systems
and processes
of governance
anchored on propeople, transparent,
and accountable
leadership.”
STRATEGIES/GOALS
The objectives of the President’s Guideposts
• Strengthening of
and the PDP have been translated to five Key
economic and
Result Areas (KRAs) under Executive Order 43, as
physical linkages
follows:
• Upgrading of
Mindanao’s
1.Transparent, accountable, and participatory
human resource
governance
capabilities
2.Poverty reduction and empowerment of the
• Peace and social
poor and vulnerable
inclusiveness
3.Rapid, inclusive, and sustained economic
• Good governance,
growth
broad peoples’
4.Just and lasting peace and the rule of law
participation and
5.Integrity of the environment and climate
strong publicchange adaptation and mitigation
private cooperation
• Delivery of basic
services for
vulnerable groups
• More equitable
distribution of
resources
• Definite and lasting
peace through a
gun-free Mindanao
society, with families,
communities and
institutions rebuilt and
healed from conflict,
war, epidemics, and
past natural disasters;
• Overall wellbeing
marked by good health,
ample education and
social cohesion;
• Economic and
ecological integration
and inclusive wealth
creation
• Sustainable natural
resource use
GPS (Governance, Peace and Security) and
Socioeconomic development reforms shall
be undertaken with the following goals:
• Open, transparent, accountable, and
inclusive governance in the ARMM;
• Preparation for transition to Bangsamoro
and the creation of an environment for
more secured communities;
• Establishment of an operational system
of rapid humanitarian protection,
assistance and response at the regional,
provincial, municipal, and barangay
levels;
• Increase of productivity, income,
employment and investment for an
inclusive and sustained economic
growth;
• Provision of adequate, reliable, and
efficient infrastructure utilities and
support facilities;
• Improvement of quality of life of poor
households in the region; and
• Protection and management of natural
resources.
159
ANNEX D: Clamor from the Ground
A. The Community Visioning Exercises:
Methodology and Results
upland areas. Efforts were undertaken to give adequate
A.1. Background/Rationale
A.4. Methodology
The Bangsamoro Development Plan (BDP) provides
The one-day CVEs mainly involved group discussions,
short- and medium-term vision and strategies for the
workshop
recovery and development of the Bangsamoro area. This
participants were asked to respond to the following
Plan will cover the transition period of 2015 to 2016
questions:
representation to women and to MNLF and other groups.
exercises,
and
deepening
inputs.
The
and includes recommendations for the years beyond.
The process was designed to be inclusive of all major
stakeholders as well as grassroots communities.
a. What is their vision of a Bangsamoro society? (A
general description of the society they want)
b. What issues adversely affect their communities?
Toward this end, the Bangsamoro Development Agency
(BDA) spearheaded a series of Community Visioning
Exercises (CVEs) in the core areas of the Bangsamoro and
in adjacent non-Bangsamoro areas, specially addressing
c. What are the causes of these problems and what
are the possible solutions?
d. What are their needs, and can these be addressed
through projects and programs?
the needs of the communities. While formulation of
the comprehensive plan was Bangsamoro-led, experts
A.5. Program Design and Activities
and consultants in various fields (Bangsamoro and
After the preliminaries, the participants were reminded of
non-Bangsamoro) were invited to contribute to the
the history of the Bangsamoro struggle, from the time of
development planning.
the Sultanate-led resistance to the present. This included
A.2. Objectives
the timeline of the peace negotiations that resulted in
the incremental successes of the GRP-MNLF Tripoli
The overall goal of the CVEs was to define the kind
Agreement, the 1996 Final Peace Agreement (FPA), and
of society the Bangsamoro would like to pursue
the GPH-MILF peace talks that culminated in the signing
in the future as an expression of their right to self-
of Comprehensive Agreement on the Bangsamoro (CAB).
determination. Specifically, the exercise sought to:
The brief historical account enabled the participants to
a. Determine problem areas and/or sources of
understand the important stakeholder interests in the
dissatisfaction/grievances in the communities, their
Bangsamoro struggle. It was emphasized that the two
causes and possible solutions;
agreements (GRP-MNLF, the 1996 FPA, and the CAB)
b. Identify the needs and define the aspirations of the
were conflicting but supplementary.
Bangsamoro for their envisioned society; and
c. Determine projects and programs that would
Basic Law (BBL), the Bangsamoro Transition Authority
to 2016.
(BTA), and the BDP was done to give the participants a
A.3. Participants
160
An explanation of the importance of the Bangsamoro
respond to these needs in the transition from 2015
background for defining their vision of the Bangsamoro.
Participants in the CVEs included community leaders
Participants also identified present issues and concerns
(formal and informal), farmers/fishers, women, IPs, and
that adversely affected their lives, their pressing needs and
settlers, who represented communities in low-lying and
aspirations, and how these needs might be addressed.
A N N EX ES
A.6. Schedule of CVEs, Venues Held, and Participants
Date
Coverage (Provinces)
4 February 2014
Maguindanao, Sultan Kudarat, Cotabato
City
Estosan Garden Hotel, Cotabato City
37
Maguindanao, Lanao del Norte
EM Manor Hotel and Convention Center,
Cotabato City
26
12 February 2014
Bukidnon, Cotabato, Maguindanao
EM Manor Hotel and Convention Center,
Cotabato City
31
15 February 2014
Sultan Kudarat, Maguindanao, Cotabato
31
17 February 2014
Zamboanga del Sur, Zamboanga del
Norte, Zamboanga Sibugay
Casa Mea Hotel, Ipil
34
19 February 2014
Basilan, Zamboanga City
OMI Formation Center, Isabela City
36
26 Februrary 2014
Lanao del Norte
Crystal Inn, Iligan City
33
Lanao del Sur
BUAD Agricultural School, Inc., Marawi
City
65
2 March 2014
South Cotabato, Sarangani
Phela Grande Hotel, General Santos City
36
4 March 2014
Davao del Sur, Davao del Norte, Davao
Oriental, Davao Occidental, Compostela
Valley
Ritz Hotel, Davao City
49
20 March 2014
Sulu
Sulu State College Hostel, Jolo
63
23 March 2014
Tawi-Tawi
Rachel's Place, Bongao, Tawi-Tawi
95
Maguindanao
Mangudadatu Gym, South Upi
Maguindanao, Sultan Kudarat, Cotabato
City
10 February 2014
28 February 2014
5 April 2014
4 February 2014
TOTAL
Location
Participants
323
37
859
A.7. Consolidation of Outputs
Based on an analysis by the BDP Core Planning Team,
amount of nuancing was evident in the outputs across
the outputs were classified into six broad themes: (a)
the provinces in the Bangsamoro, reflective of the
economy; (b) social; (c) governance; (d) environment;
cultural diversity, the overall messages, as described in
(e) culture and identity; and (f) security. While a certain
Chapter 5, provided useful framework for the BDP.
161
B. Community Validation Exercises
B.3 Participants
The participants of the Community Validation (CV)
B.1. Rationale
included members of some of the communities engaged
Part of the BDP formulation was the validation and
during
consolidation of development interventions identified
Bangsamoro core territories and adjacent areas. They
from the different activities conducted by the BDP
represented the student and youth sector, political
Core Planning Team and development partners. This
committees, MILF line agencies in the community,
validation was conducted through intensive activities
indigenous peoples (IPs), Bangsamoro Islamic Armed
from the ground up to the national stakeholders and
Forces (BIAF), Moro National Liberation Front (MNLF),
partners.
local government units (LGUs), Christians, and included
the
CVEs
conducted
across
the
proposed
tribal and traditional leaders.
B.2. Objectives
The general objective of the validation was to
B.4. Methodology
inform and formulate appreciation from the different
The CV was a one-day exercise that included group
stakeholders regarding the content of the formulated
discussions and workshops, and involved deepening
BDP. Further comments and suggestions were gathered
of inputs. The participants responded to the following
and integrated in the draft thereafter. Specifically, the
questions:
validation aimed to:
a.
a. What are the top priority projects to be implemented
Identify needed development interventions;
b. Identify specific areas and locations for programs
and projects; and
in their respective areas?
b. Where specificually should the programs and
projects (e.g., one project for whole municipality) be
c. Prioritize proposed programs and projects based
on the requirements.
done?
c. What would be the estimated cost of the proposed
programs and projects?
B.5. Schedule of Community Validations, Venues Held, Participants
Date
162
Location
Participants
5 July 2014
Maguindanao, Cotabato City
Darapanan, Simuay, Sultan Kudarat
71
7 July 2014
Maguindanao, Sultan Kudarat
Kurintem, Datu Odin Sinsuat
59
8 July 2014
Maguindanao, Sultan Kudarat
Lambayong, Sultan Kudarat
93
9 July 2014
Bukidnon, Cotabato
Manarapan, Carmen
49
10 July 2014
Cotabato, Maguindanao
Pagalungan
52
4 August 2014
Lanao del Norte
Balo-i
60
5 August 2014
Lanao del Norte
Balo-i
71
A N N EX ES
Date
7 August 2014
Location
Participants
Lanao del Sur
Butig
59
Lanao del Sur
BUAD, Agricultural School, Inc., Marawi
City
57
12 August 2014
Basilan
BDA-RMO ZamBas, Isabela City
93
13 August 2014
Basilan
BDA-RMO ZamBas, Isabela City
122
14 August 2014
Basilan
Kailih, Al-Barkah, Basilan
101
17 August 2014
Tawi-Tawi
Beach Side Inn, Bongao
118
18 August 2014
Tawi-Tawi
Beach Side Inn, Bongao
122
20 August 2014
Sulu
Notre Dame Learning Center, Jolo
101
21 August 2014
Sulu
165
22 August 2014
Sulu
126
15 September 2014
Zamboanga del Norte
Sirawai
16 September 2014
Zamboanga del Norte, Zamboanga
Sibugay
Ipil
18 September 2014
Zamboanga del Sur
Dinas
74
23 September 2014
Sarangani
Malapatan
37
24 September 2014
South Cotabato
Durian Garden, Polomolok
57
26 September 2014
Sarangani, Sultan Kudarat
Maitum
88
27 September 2014
Davao del Sur
Sta. Cruz
62
28 September 2014
Davao del Norte, Compostela Valley
Madaum, Tagum City
45
29 September 2014
Davao Oriental
Tagabakid, Mati City
72
8 August 2014
80
100
TOTAL
2134
C. Consultations on the Bangsamoro Basic
Law (BBL)
C.1. Background
In October 2013, the Bangsamoro Transition Commission
(BTC) signed a Memorandum of Agreement with the
and pertinent regions in Luzon and Visayas; and
c. Broaden the constituency for establishment of the
Mindanao Civil Society Organizations Platform for Peace
(MCSOPP)
to
conduct
community
engagements
Bangsamoro.
and
consultations in the drafting of the BBL. The main objectives
As a loose organization of civil society organizations
of conducting public engagements and consultations were
across the Bangsamoro, the MCSOPP had a large
to:
geographical
a. Promote transparency, inclusiveness, and active
coverage
for
conducting
community
consultations. Over 100 of these were conducted from
participation of the local stakeholders to generate
December 2013 to April 2014. While the engagement
massive public support and ownership of the BBL;
was
primarily
targeted
around
the
political
and
b. Set a machinery for public engagement and multi-
institutional development process of establishing the
stakeholder participation within the proposed core
Bangsamoro Government, community engagements also
territory of the Bangsamoro, the target expansion areas,
revealed other concerns of stakeholder communities.
163
C.2. Cross-Validation with Community Visioning
Exercise Outputs
A rapid analysis of the consolidated outputs by the BDP
as appropriate to address the socio-economic and other
Core Planning Team revealed significant overlapping of
development concerns of communities in the Bangsamoro.
the aspirations, priorities, and sources of dissatisfaction
uncovered by the CVEs. This confirmed the BDP framework,
Table 39 presents an overview of the MCSOPP outputs as a
anchored in the CVE and the current situational analysis,
reference for comparison with the CVE results.
Table 39: Overview of MCSOPP Consultation Outputs
Issues/Concerns
Remarks/Recommendations
Peace and Security
• Clan feud (rido)
• Drug trafficking
•Robbery
• Drug users
• Drug lords
• Loose firearms
• Private armies
• Lost command armed groups
•Banditry
• Every barangay should provide or have an assigned policeman
to monitor the peace and order situation in the area
• There should be a committee of elders to mitigate clan wars
and they should be given honorariums
• Impose strong penalties on all crimes
• Organize peacekeepers in every municipality/barangay
• Disband all private armies
• Traditional leaders to handle rido
Government
•Nepotism
•Transparency
• Unemployment and underemployment
• Corruption in all levels of government institutions; among
department heads/immediate supervisors
• Lack of good leaders
• Inadequate salaries for government workers
• The need for youth representatives in legislative and policy
making bodies
•No Ulamah sector representative
• Political dynasty
• Violation of women’s rights
•“Lagayan system” (bribery)
• Untrustworthy or questionable people who handle government
projects
• Non-implementation of Shari’ah Law
• Equality of human rights and free legal services
• Change the present form of government
• Conflict between Shari’ah Law and Philippine Constitution
• No strong political will in enforcement of laws, especially on
illegal drugs
• Traditional leaders
164
• Retaining “Muslim Mindanao” in the Bangsamoro Government
• Full implementation of Shari’ah Law according to Islamic laws
and principles
• A reserved seat for the Ulamah in the Bangsamoro Parliament
• Exercise of political will to strictly implement anticorruption
laws
• Creation of jobs down to municipal and barangay levels, with
reasonable salary rates and possibly above the minimum wage
• A seat for traditional leaders in the Bangsamoro Transition
Authority (BTA)
• Creation of a Bangsamoro Professional Regulation Commission
intended for the Bangsamoro
• Creation of a Baital Mal (House of Treasury) for hajj purposes.
• Abolish election process; appointing of potential leader/s must
have following qualifications
• Religious people
• Project contractors who are trusted by the people
• With good moral character and with no criminal record
• Limit to one family member of each clan to run for any
government position
• Develop, enact, and implement policies that ensure protection
and security, especially of IP and Moro women affected by
armed conflict
• Support programs and capability of LGUs, other agencies, and
CSOs in providing legal, economic, educational, psychosocial
support, and spiritual services for women and girl survivors of
armed conflict
• Strengthen the criminal justice system in accordance with
human rights and international humanitarian law, and enabling
laws to address violence against women especially in the
context of armed conflict
A N N EX ES
Issues/Concerns
Remarks/Recommendations
• Develop nondiscriminatory policies that address the situation
of women in the security sector
• Respect for delineated territory
• Free, Prior and Informed Consent (FPIC) on governance and
other decision-making matters
• FPIC exploration, development, and utilization of natural
resources
• Representation and participation in governance (reserved seats
for IP in Parliament and other governance mechanisms)
• Culture-sensitive policing structure taking into consideration IP
mechanisms for policing their own territory
• IP participation in the ranks of the police force
• Incorporate role of women in preventing and resolving conflicts
and coordinating with the Bangsamoro Police regarding
community concerns
• Incorporate and strengthen the use of customary and
traditional conflict-resolution mechanisms within the
Bangsamoro, while addressing any discriminatory practices
involved therein
• Indicate a provision of reparations in land conflicts, such as the
return of disputed land to aggrieved parties
• Respect for traditional governance system
Education
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
•
Lack of assistance to Islamic education
High tuition costs in private schools
Low salaries for Islamic teachers
Lack of school facilities, i.e., books, libraries, and research centers
Minimum standard on Islamic education
Lack of recognition of Islamic teachers in board exams
Lack of support for Islamic teachers
Problem of “ghost schools” and “ghost teachers”
Ignorance of Shari’ah law
Absentee teachers
Volunteer teachers in DepEd to have permanent positions
Improvement of the madrasah educational system
Full implementation of madaris system
Difficulty in accessing the TESDA programs for out-of-school
youth
Salary grade inequality between madaris and DepEd teachers
Need for scholarship grants to deserving students and poorest of
the poor
Unfair treatment of Arabic-education teachers vis-à-vis Westerneducation teachers
Growing number of out-of-school youths
• That there shall be equal education for all
• The recognition of Islamic teachers by the government
• Provide a standard board exam or qualification test for Islamic
education
• Recognition of Islamic education as equivalent to Western
education
• Madaris teachers should receive the same salary grade with
that of the DepEd teachers or its equivalent
• Volunteer teachers to receive the same salary with regular
teachers
• The Bangsamoro Government should provide free college
education
• Recognition of madaris by the LGUs
• Shari’ah courts must be in placed in all municipal levels so that
Muslims in the Bangsamoro can have immediate access in
their filing of complaints
• Recognition of Arabic Certificate/Diploma from the Middle East
in practicing Shari’ah law in the Philippines
• Recognition of Islamic educators
165
ANNEX E: Poorest Provinces and Municipalities in the Philippines
Table 40: Ranking of Poverty Incidence in the Philippines, by Province (2006, 2009, and 2012)
Rank
166
Province/City
2006 PI
Province/City
2009 PI
Province/City
2012 PI
PHILIPPINES
26.6
PHILIPPINES
26.3
PHILIPPINES
25.2
1
Zamboanga del Norte
65.5
Zamboanga del Norte
68.5
Lanao del Sur
73.8
2
Maguindanao
54.6
Agusan del Sur
60.0
Maguindanao
63.7
3
Agusan del Sur
53.8
Surigao Del Norte
57.9
Eastern Samar
63.7
4
Masbate
53.6
Saranggani
57.7
Apayao
61.4
5
Northern Samar
53.4
Lanao del Sur
56.6
Zamboanga del Norte
54.4
6
Surigao Del Norte
52.7
Eastern Samar
56.4
Camiguin
53.6
7
Tawi-Tawi
52.4
Masbate
56.3
Saranggani
53.2
8
Sultan Kudarat
52.0
Davao Oriental
54.4
North Cotabato
52.4
9
Antique
51.6
Surigao Del Sur
53.7
Masbate
51.3
10
Eastern Samar
51.3
Zamboanga Sibugay
52.7
Northern Samar
50.2
11
Zamboanga Sibugay
50.7
Mountain Province
52.2
Negros Oriental
50.1
12
Davao Oriental
50.5
Maguindanao
52.2
Western Samar
50.0
13
Abra
49.3
Northern Samar
52.1
Lanao del Norte
49.1
14
Saranggani
49.0
Sultan Kudarat
51.5
Bukidnon
49.0
15
Bohol
48.2
Abra
48.8
Sultan Kudarat
48.5
16
Camarines Sur
47.8
Camarines Sur
47.9
Agusan del Sur
48.1
17
Kalinga
47.3
Misamis Occidental
46.5
Sulu
45.8
18
Apayao
46.8
Lanao del Norte
46.2
Davao Oriental
45.8
19
Surigao Del Sur
46.5
Bukidnon
46.0
Zamboanga Sibugay
44.8
20
Romblon
46.1
Agusan del Norte
45.9
Cotabato City
44.3
21
Lanao del Sur
44.7
Apayao
45.7
Southern Leyte
43.3
22
Agusan del Norte
44.1
Aklan
44.7
Misamis Occidental
42.8
23
Mountain Province
44.1
Antique
44.3
Ifugao
42.4
24
Misamis Occidental
44.0
Bohol
43.7
Surigao Del Norte
41.8
25
Oriental Mindoro
43.7
Southern Leyte
43.1
Basilan
41.2
26
Bukidnon
43.6
Western Samar
42.5
Camarines Sur
41.2
27
Occidental Mindoro
43.2
Romblon
41.9
Albay
41.0
28
Negros Oriental
42.9
Camarines Norte
41.8
Sorsogon
40.7
29
Isabela City
41.9
Sulu
41.6
Romblon
40.5
30
Aklan
41.8
Sorsogon
39.3
Leyte
39.2
A N N EX ES
Rank
Province/City
2006 PI
Province/City
2009 PI
Province/City
2012 PI
31
Catanduanes
41.4
Biliran
39.2
Occidental Mindoro
38.1
32
Sorsogon
41.2
Albay
36.7
Mountain Province
37.6
33
Camarines Norte
41.1
Compostela Valley
36.6
Abra
37.4
34
Lanao del Norte
40.7
Basilan
36.6
Bohol
36.8
35
Sulu
40.7
Leyte
36.3
Compostela Valley
36.7
36
Marinduque
40.5
Oriental Mindoro
36.1
Surigao Del Sur
36.0
37
Western Samar
40.4
Occidental Mindoro
35.9
Agusan del Norte
34.7
38
Basilan
39.0
Tawi-Tawi
35.3
Catanduanes
33.8
39
Leyte
38.4
Cotabato City
34.0
Davao del Norte
33.4
40
Compostela Valley
37.7
Marinduque
33.6
Batanes
33.3
41
Albay
36.4
Negros Oriental
33.2
Marinduque
32.9
42
Palawan
35.2
Ifugao
32.1
Siquijor
32.6
43
Camiguin
34.6
Davao del Norte
32.0
Negros Occidental
32.3
44
Cotabato City
34.4
South Cotabato
31.6
Zamboanga del Sur
32.0
45
Southern Leyte
33.7
Zamboanga del Sur
31.6
South Cotabato
32.0
46
Quezon
33.5
Siquijor
31.0
Antique
30.9
47
Misamis Oriental
32.0
Palawan
30.9
Aurora
30.8
48
South Cotabato
31.7
North Cotabato
30.6
Oriental Mindoro
29.3
49
Davao del Norte
31.7
Negros Occidental
30.4
Camarines Norte
28.7
50
Zamboanga del Sur
31.7
Kalinga
30.1
Tawi-Tawi
28.6
51
North Cotabato
31.4
Nueva Ecija
29.9
Capiz
27.8
52
Aurora
30.5
Quezon
29.8
Quezon
27.5
53
Cebu
30.4
La Union
29.3
Biliran
27.5
54
Capiz
29.9
Catanduanes
29.1
Kalinga
26.8
55
Biliran
29.8
Capiz
29.0
Palawan
26.4
56
Isabela
29.6
Misamis Oriental
28.9
Iloilo
26.2
57
Cagayan
29.6
Isabela
28.9
Guimaras
25.2
58
Pangasinan
28.7
Cagayan
27.8
Nueva Ecija
25.2
59
Negros Occidental
28.2
Isabela City
27.4
Aklan
25.0
60
Ifugao
28
Cebu
26.8
Davao del Sur
24.4
61
Nueva Ecija
26.5
Iloilo
26.6
Isabela
24.4
62
La Union
26.0
Camiguin
25.5
Misamis Oriental
23.4
167
Rank
Province/City
2006 PI
Province/City
Province/City
2012 PI
63
Guimaras
25.3
Davao del Sur
24.8
Cebu
22.7
64
Davao del Sur
23.7
Pangasinan
22.3
Isabela City
22.1
65
Zambales
23.6
Guimaras
20.7
Quirino
21.2
66
Siquijor
22.7
Aurora
18.2
Nueva Vizcaya
20.7
67
Iloilo
21.8
Ilocos Sur
18.1
Pangasinan
20.4
68
Ilocos Sur
20.8
Tarlac
17.5
Cagayan
19.7
69
Tarlac
18.1
Zambales
17.3
Batangas
19.0
70
Ilocos Norte
17.7
Batangas
17.1
La Union
18.5
71
Batanes
16.6
Quirino
15.6
Ilocos Sur
17.3
72
Nueva Vizcaya
15.0
Ilocos Norte
14.7
Tarlac
16.6
73
Quirino
14.6
Batanes
14.4
Zambales
16.0
74
Batangas
14.4
Nueva Vizcaya
13.3
Ilocos Norte
9.9
75
Bataan
9.7
Rizal
8.6
Pampanga
7.6
76
Bulacan
7.3
Laguna
8.4
Bulacan
7.3
77
Benguet
5.8
Bataan
7.7
Bataan
7.1
78
Laguna
5.5
Bulacan
6.9
Laguna
6.4
79
1st District*
4.9
Pampanga
6.9
1st District*
6.2
80
2nd District*
4.9
Benguet
6.1
Rizal
6.1
81
3rd District*
4.6
1st District*
5.1
4th District*
4.8
82
4th District*
4.4
3rd District*
4.5
3rd District*
3.8
83
Rizal
3.3
2nd District*
3.3
Benguet
3.7
84
Pampanga
2.7
Cavite
3.2
Cavite
3.4
85
Cavite
1.8
4th District
2.4
2nd District*
2.4
Note: * Refers to the congressional districts of the National Capital Region (NCR).
Source: PSA
168
2009 PI
A N N EX ES
Table 41: 100 Poorest Municipalities and Cities in the Philippines (2006 and 2009)
Rank
Municipality/City
Province
2006 PI
Municipality/ City
Province
2009 PI
1
San Andres
Quezon
78.30
Siayan
Zamboanga Del Norte
79.86
2
Concepcion
Misamis Occidental
76.54
Bucloc
Abra
77.18
3
Boliney
Abra
76.02
Baliguian
Zamboanga Del Norte
75.31
4
Batuan
Bohol
75.25
Jose Abad Santos
(Trinidad)
Davao Del Sur
72.32
5
Carmen
Bohol
74.99
Sarangani
Davao Del Sur
72.12
6
Jomalig
Quezon
74.90
Godod
Zamboanga Del Norte
71.06
7
Cagayancillo
Palawan
74.52
Gutalac
Zamboanga Del Norte
70.41
8
Buenavista
Quezon
74.41
Tandag
Maguindanao
70.1
9
La Paz
Agusan Del Sur
74.19
Tagoloan
Lanao Del Norte
69.38
10
Magsaysay (Linugos)
Misamis Oriental
73.85
Mabuhay
Zamboanga Sibugay
68.86
11
Don Victoriano
Chiongbian (Don
Mariano Marcos)
Misamis Occidental
73.73
Manukan
Zamboanga Del Norte
68.24
12
Siayan
Zamboanga Del Norte
72.3
Sibuco
Zamboanga Del Norte
68.21
13
Tinglayan
Kalinga
72.02
Jose Dalman (Ponot)
Zamboanga Del Norte
68.00
14
Bulalacao (San
Pedro)
Oriental Mindoro
71.28
Nunungan
Lanao Del Norte
67.87
15
Patnanungan
Quezon
71.20
Kibungan
Benguet
67.86
16
Gutalac
Zamboanga Del Norte
71.05
Guindulungan
Maguindanao
67.68
17
Baliguian
Zamboanga Del Norte
70.37
Munai
Lanao Del Norte
67.47
18
Loreto
Agusan Del Sur
70.25
Tangcal
Lanao Del Norte
67.36
19
Luuk
Sulu
70.20
Lacub
Abra
67.23
20
Tongkil
Sulu
69.80
Gen. S. K. Pendatun
Maguindanao
67.12
21
San Luis
Agusan Del Sur
69.66
Pilar
Bohol
67.08
22
San Narciso
Quezon
68.65
Tagoloan Ii
Lanao Del Sur
67.08
23
Esperanza
Agusan Del Sur
66.86
Panglima Estino (New
Panamao)
Sulu
66.78
24
Tanudan
Kalinga
66.58
Poona Piagapo
Lanao Del Norte
66.75
25
Bonifacio
Misamis Occidental
66.56
La Paz
Agusan Del Sur
66.71
26
Tabuelan
Cebu
66.48
Don Marcelino
Davao Del Sur
66.54
27
Tagoloan
Lanao Del Norte
66.45
Talusan
Zamboanga Sibugay
66.52
28
Mulanay
Quezon
66.29
Kabuntalan (Tumbao)
Maguindanao
66.48
29
Sibuco
Zamboanga Del Norte
66.00
Pres. Manuel A. Roxas
Zamboanga Del Norte
66.34
169
Rank
170
Municipality/City
Province
2006 PI
Municipality/ City
Province
2009 PI
30
Dagohoy
Bohol
65.87
Bacungan (Leon T.
Postigo)
Zamboanga Del Norte
65.96
31
San Jose
Romblon
65.78
Kalawit
Zamboanga Del Norte
65.83
32
Sirawai
Zamboanga Del Norte
65.47
Sergio Osmeña Sr.
Zamboanga Del Norte
65.80
33
Jimalalud
Negros Oriental
65.31
Don Victoriano
Chiongbian (Don
Mariano Marcos)
Misamis Occidental
65.66
34
Basilisa (Rizal)
Surigao Del Norte
65.11
Paglat
Maguindanao
65.43
35
Santa Fe
Cebu
65.02
Silvino Lobos
Northern Samar
64.78
36
Kalingalan Caluang
Sulu
65.00
San Isidro
Bohol
64.01
37
Danao
Bohol
64.69
Malita
Davao Del Sur
63.82
38
Catigbian
Bohol
64.31
Bien Unido
Bohol
63.72
39
San Miguel
Bohol
64.23
Palimbang
Sultan Kudarat
63.68
40
Matuguinao
Samar (Western)
64.18
Siocon
Zamboanga Del Norte
63.56
41
Bacungan (Leon T.
Postigo)
Zamboanga Del Norte
63.93
Madalag
Aklan
63.34
42
Tangub City
Misamis Occidental
63.82
Payao
Zamboanga Sibugay
63.25
43
San Francisco
(Aurora)
Quezon
63.51
Sultan Sa Barongis
(Lambayong)
Maguindanao
62.89
44
Linapacan
Palawan
63.44
Pilar
Surigao Del Norte
62.75
45
Jose Dalman (Ponot)
Zamboanga Del Norte
63.40
San Benito
Surigao Del Norte
62.62
46
Sibagat
Agusan Del Sur
63.34
Talaingod
Davao Del Norte
62.60
47
Talitay
Maguindanao
63.00
Alegria
Cebu
62.36
48
Veruela
Agusan Del Sur
63.00
Libacao
Aklan
62.33
49
Datu Unsay
Maguindanao
63.00
Tarragona
Davao Oriental
62.31
50
Tineg
Abra
62.86
Concepcion
Misamis Occidental
62.3
51
Alegria
Cebu
62.68
Danao
Bohol
62.09
52
Gen. S. K. Pendatun
Maguindanao
62.60
Pres. Carlos P. Garcia
(Pitogo)
Bohol
62.09
53
Mangudadatu
Maguindanao
62.60
Sapad
Lanao Del Norte
62.04
54
Paglat
Maguindanao
62.40
Sallapadan
Abra
62.00
55
Dumaran
Palawan
62.24
San Luis
Agusan Del Sur
61.99
56
Pilar
Bohol
62.15
Esperanza
Agusan Del Sur
61.94
57
Sultan Sa Barongis
(Lambayong)
Maguindanao
61.80
Sirawai
Zamboanga Del Norte
61.66
58
San Pascual
Masbate
61.70
Olutanga
Zamboanga Sibugay
61.65
A N N EX ES
Rank
Municipality/City
Province
2006 PI
Municipality/ City
Cebu
61.69
Malitbog
59
Aloguinsan
60
Pandag
Maguindanao
61.60
61
Godod
Zamboanga Del Norte
62
Hadji Panglima Tahil
(Marunggas)
63
Bunawan
64
San Francisco
65
Province
2009 PI
Bukidnon
61.42
Buldon
Maguindanao
61.13
60.91
Datu Anggal Midtimbang
Maguindanao
61.07
Sulu
60.90
Jipapad
Eastern Samar
60.58
Agusan Del Sur
60.82
Mangudadatu
Maguindanao
60.28
Cebu
60.66
Magsaysay (Linugos)
Misamis Oriental
60.27
Cagdianao
Surigao Del Norte
60.64
Salug
Zamboanga Del Norte
60.19
66
Motiong
Samar (Western)
60.63
Maslog
Eastern Samar
60.16
67
Guindulungan
Maguindanao
60.50
Jetafe
Bohol
60.14
68
Badian
Cebu
60.45
Sultan Naga Dimaporo
(Karomatan)
Lanao Del Norte
59.91
69
Corcuera
Romblon
60.41
Bindoy (Payabon)
Negros Oriental
59.90
70
Kalawit
Zamboanga Del Norte
60.39
Pantao Ragat
Lanao Del Norte
59.68
71
Sevilla
Bohol
59.88
Gigaquit
Surigao Del Norte
59.64
72
Silvino Lobos
Northern Samar
59.84
Datu Abdullah Sanki
Maguindanao
59.5
73
Libjo (Albor)
Surigao Del Norte
59.84
San Francisco
Cebu
59.49
74
Siocon
Zamboanga Del Norte
59.78
Tungawan
Zamboanga Sibugay
59.45
75
Siasi
Sulu
59.70
Sibagat
Agusan Del Sur
59.41
76
Pres. Manuel A.
Roxas
Zamboanga Del Norte
59.64
Matungao
Lanao Del Norte
59.25
77
Malabuyoc
Cebu
59.40
Magsaysay
Lanao Del Norte
59.18
78
Sergio Osmeña, Sr.
Zamboanga Del Norte
59.30
Garchitorena
Camarines Sur
58.97
79
Natonin
Mountain Province
59.15
Rajah Buayan
Maguindanao
58.93
80
Mamasapano
Maguindanao
59.00
Del Carmen
Surigao Del Norte
58.87
81
Placer
Masbate
58.95
Manay
Davao Oriental
58.67
82
Katipunan
Zamboanga Del Norte
58.92
Rapu-Rapu
Albay
58.64
83
Manukan
Zamboanga Del Norte
58.85
Kabayan
Benguet
58.61
84
Las Navas
Northern Samar
58.83
Veruela
Agusan Del Sur
58.48
85
Lutayan
Sultan Kudarat
58.83
Mabini
Bohol
58.42
86
Lacub
Abra
58.82
Catarman
Camiguin
58.39
87
Paluan
Occidental Mindoro
58.69
Mapanas
Northern Samar
58.35
88
Guihulngan
Negros Oriental
58.57
Lope De Vega
Northern Samar
58.22
89
Tuburan
Cebu
58.42
Pagagawan
Maguindanao
58.21
171
Rank
Province
2006 PI
Municipality/ City
Albay
58.32
Caraga
Zamboanga Del Norte
58.22
91
Jovellar
92
Sindangan
93
Bucloc
Abra
94
Trinidad
95
Maslog
96
Province
2009 PI
Davao Oriental
58.00
Ginatilan
Cebu
57.96
58.04
Talacogon
Agusan Del Sur
57.95
Bohol
57.93
Mamasapano
Maguindanao
57.89
Eastern Samar
57.81
Mutia
Zamboanga Del Norte
57.82
Tapul
Sulu
57.70
San Jose De Buan
Samar (Western)
57.75
97
Pio Duran
Albay
57.66
Dinagat
Surigao Del Norte
57.63
98
Lupi
Camarines Sur
57.48
Talipao
Sulu
57.57
99
Tayasan
Negros Oriental
57.40
Matuguinao
Samar (Western)
57.48
100
Ronda
Cebu
57.25
Pantar
Lanao Del Norte
57.45
Source: PSA
172
Municipality/City
A N N EX ES
ANNEX F: Cultural Diversity in the Bangsamoro
Table 42: Location and Population of ICCs/IPs in ARMM, Lanao del Norte,
North Cotabato, and the Cities of Isabela and Cotabato
Province
Lanao del Sur
Maguindanao
Sulu
ICCs / IPs*
1.
2.
3.
4. 5.
6.
7.
8.
9.
10.
11.
12.
13.
14.
Abelling
Abiyan
Aeta
Atta
Batak
Batangan
Binukid
Higaonon
Ibanag
Ivatan
Kankanai
Manobo
Tagakaolo
Tiruray
1.
2.
3.
4.
5.
6.
7.
8.
9.
10.
11.
12.
13.
14.
15.
16.
17.
18.
19.
20.
21.
22.
23.
Abelling
Abiyan
Badjao, Sama Dilaut
Batak
Batangan
B’laan
Binukid
Higaonon
Ibanag
Ikalahan
Ilongot
Kankanai
Kolibugan
Malaueg
Mamanwa
Mandaya
Manobo
Mansaka
Subanen
T’boli
Teduray
Tinggian
Tiruray
1.
2.
3.
4.
5.
6. 7.
8.
9.
Abeling
Abiyan
Atta
Badjao, Sama Dilaut
Balangao
Cimaron
Ibanag
Kanakanai
Manobo
Population** (2010)
4,893
55,841
16,472
Municipalities with IP
Population
1.Balindong
2.Balabagan
3.Bayang
4.Binidayan
5.Budaiposo-buntong
6.Bubong
7.Bumbaran
8.Butig
9.Lumba-Bayabao
1.
2.
3.
4.
5.
6. 7.
8.
9.
10.
11.
12.
13.
14.
15.
Ampatuan
Barira
Buldon
Datu Odin Sinsuat
Datu Paglas
Gen K. S. Pendatun
Kabuntalan
Pagagawan
Pagalungan
Parang
South Upi
Sultan Kudarat
Sultan Sa Barongis
Talayan
Upi
1.
2.
3.
4.
5.
6.
7.
8.
9.
10.
11.
Kalingan Caluang
Indanan
Lugus
Maimbong
Pandami
Pangutaran
Parang
Siasi
Talipao
Tapul
Tongkil
Municipalities/Cities
10.
11.
12.
13.
14.
15.
16.
17.
18.
19.
20.
12.
13.
14.
15.
Maguing
Malabang
Marantao
Marawi City
Marugong
Masiu
Piagapo
Taraka
Tagoloan II
Tugaya
Wao
Old Panamao
Panglima Estino
Pata
Patikul
173
Province
Tawi-Tawi
ICCs / IPs*
Population** (2010)
Municipalities with IP
Population
1.
2.
3.
4.
5.
6.
7.
8.
Abelling
Aeta
Badjao, Sama Dilaut
Ibanag
Kankanai
Manobo
Sama Bangenge
Sama Dilaya
1.
2.
3.
4.
5.
6.
7.
8.
9.
10.
11.
Abeling
Abiyan
Badjao, Sama Dilaut
Binukid
Ibanag
Illanun/Llanuan
Kankanai
Kolibugan
Manobo
Sama Dilaya
Subanen
Lanao del Norte
1.
2.
3.
Abelling
Ibanag
Kankanai
North Cotabato
1.
2.
3.
4.
5.
6.
7.
8.
9.
10.
Abelling
Abiyan
Bagobo
B’lann
Ibanag
Ilongot
Kanakanai
Mamanwa
Manobo
Tiruray
10,908
1.
2.
3.
4.
5.
6.
Abelling
Badjao, Sama
Dilaut
Ibanag
Ilanun
Kankanai
Subanen
3,020
Isabela City
1.
2.
3.
4.
5.
6.
7.
8.
9.
Batangan
Ibanag
Ilongot
Kankanai
Malueg
Mamanwa
Manobo
Teduray
Tiruray
2,138
Cotabato City
Basilan
Isabela City
Cotabato City
Total
123,783
5,772
172
1.
2.
3.
4.
5.
6.
Sibutu (16)
Simunul (15)
Sitangkai (9)
South Ubian (31)
Tandubas (20)
Sapa-sapa (23)
1.
2.
3.
4.
5.
6.
Lamitan
Lantawan
Maluso
Tabuan Lasa
Tipo-Tipo
Sumisip
Municipalities/ Cities
7. 8.
9.
10.
11.
Mapun (15)
Languyan (3)
Panglima Sugala (5)
Turtle Island (2)
Bongao (10)
1. Baloi
2. Pantar
1.
2.
3.
4.
5.
6.
Aleosan
Carmen
Kabacan
Midsayap
Pigkawayan
Pikit
222,949
Notes:
* – IP groups (whether native or non-native of Bangsamoro areas); included in the table are only those with population > 20 persons, based on CPH 2010.
** — Refers to total population of all IP groups.
Source: PSA-CPH (2010). See www.ncip.gov.ph.
174
A N N EX ES
ANNEX G: Results-based Monitoring and Evaluation Framework
The following are proposed institutional conditions
will
for effective and efficient RbM&E implementation of
making
provide
to
better
these
and
informed
decision-
agencies/organizations/groups.
the recommendations contained in the Bangsamoro
Development Plan (BDP).
2. Logical Framework. See Tables 44, 45, and 46 for
A. Operationalizing the BDP RbM&E System
To ensure effective monitoring and evaluation of plans,
projects, and programs, the regular planning agency/
agencies, project development and RbM&E units/offices
of functional agencies under the Bangsamoro Transition
Authority (BTA) and the Bangsamoro Government shall
be given the responsibilities listed on Table 43.
B. BDP RbM&E Framework and its Elements
the Logical Framework Matrix of the BDP to convey
the complexities of the goals identified under the six
strategic areas of intervention.
3. Data Collection. See Table 46 for the methods
and tools of data collection to the BDP logframe
indicators. Monitors and evaluators will need to gather
and analyze relevant data that are disaggregated
by gender, ethnicity, and religion to determine if
the development initiatives, including the flagship
programs outlined in the BDP, have improved
1. Inventory of Information Needs. A listing of
access and welfare of various social groups within
the information needs of relevant oversight and
the Bangsamoro. All unit/agency staff responsible
functional departments of the Central Government,
for RbM&E in the BTA may undergo training in data
the BTA, and other organizations supporting the
collection, validation, analysis, and reporting. Critical
BDP initiatives vis-à-vis their M&E responsibilities
coordination with government and nongovernment
will be necessary when the Bangsamoro Basic
organizations involved in M&E (e.g., the ARMM’s
Law (BBL) has taken effect. Clustered by the
“Open Data”) will be essential to complementing and
six strategic themes of the BDP, the inventory
building on initial efforts at data building and analysis.
Table 43: Proposed Implementation Arrangements for RbM&E
Agencies
RbM&E Responsibilities
Coordinating Body for Development
• Sets into policy actions the findings and recommendations of
the RbM&E Body to support effective and efficient
implementation of development programs
Results-based Monitoring and Evaluation (RbM&E) Body
• Develops and implements an integrated and comprehensive
results-based monitoring and evaluation system to
provide findings and recommendations to aid the proper
implementation of development and strategic interventions,
and formulation of future plan in the Bangsamoro
• Coordinates with Central Government and Bangsamoro
statistical agencies
• Directly accountable to the BTA/Office of the Chief Minister, and
independent of the Coordinating Body for Development or the
implementing agencies
Results-based Monitoring and Evaluation (RbM&E) Units
• Implement the RbM&E system per specific sector/theme
• Lodged at each Bangsamoro-led implementing agency or
ministry
• Directly accountable to the RbM&E Body
Bangsamoro Statistical Agency
• To be determined by the BTA
175
4. Baseline. It is highly imperative for the RbM&E
economy that will strengthen institutions, promote
Body, in coordination with its units, to conduct
more equitable access to economic opportunities,
a
citizen security and justice; and (c) quarterly datasheets
rapid
assessment/appraisal
survey
in
the
Bangsamoro region to establish the baseline
on relevant indicators based on demand.
with which the performance and progress of
various interventions in the thematic and strategic
8. Capacity Needs. Staff, including field workers, who
areas will be compared, from the transition
will be involved in the implementation of RbM&E will
period through to 2022. Ideally, the rollout of
need to undergo training and capacity-development on
the baseline survey shall take place once the
data gathering, data validation, data analysis, results or
Bangsamoro geographic scope is finalized based
performance evaluation, data management, as well as
on the outcome of the BBL plebiscite. Operational
reporting/communication, to ensure that they dispense
planning for the baseline survey can be done
their functions and responsibilities efficiently and
beginning 2015. The baseline data in Table 45 will
effectively.
be updated or revised to align with the incumbent
geographic scope to indicators (ARMM) with the
outcomes of the BBL plebiscite.
9. Evaluation Plans. A mid term and end-of-term
evaluation shall be undertaken on the performance,
results and impact of the BDP initiatives. It will apply
5. The critical steps in making a rigorous impact
mixed methods because the programs and projects
evaluation is to delineate control and determine
will be undertaken in the context of the complex
treated/intervention groups or areas, alongside
and
establish
a
and organizational settings of the Bangsamoro, and
well thought-out evaluation plan before any
emphasize the consultative process. The RbM&E Body
development intervention in areas of interest.
shall prepare guidelines on the structure of evaluation
the
baseline
figures
based
on
fluid
social,
historical,
economic,
political,
and evaluation reports.
6. Review Meetings. The RbM&E Body and its
component units in the various Bangsamoro-led
The performance, results, and impact of BDP programs
implementing agencies will conduct periodic
and projects will be evaluated according to the
review meetings to facilitate the learning process.
following criteria:
In coordination with the Coordinating Body for
Development and the implementing agencies,
a. Impact. Has the BDP attained the targets of the
the RbM&E Body shall establish a mechanism to
specific activities, projects, programs implemented,
process the outputs of the learning process and
as identified in the six strategic themes? What are
to use the learning outputs as inputs to influence
the intended and unintended impacts, both positive
policy dialogues, based on demand.
and negative, of all the elements of the BDP? Is the
intervention logic robust and logical?
7. Reporting. The BDP RbM&E adopts three types
176
of reporting: (a) monthly progress reports on
b. Relevance and Appropriateness. Do the objectives,
achievements in the six strategic themes, including
themes, priorities, and approaches specified in
the flagship programs; (b) yearly progress reports
the BDP have direct links to establishing a “just
on achievements in the six strategic themes, with
economy”? Are the interventions and activities
the highlights of best practices, in relation to the
relevant given the development challenges in
overall goal of building the foundations of a just
Bangsamoro? Are the specific interventions aligned
A N N EX ES
BDP?
with the Plan?
c. Effectiveness. To what extent have the strategies
g. Lessons Learned. What intervention practices in
and objectives of the BDP been achieved? Have
the BDP work best and what do not prove to be
the targets been achieved in a timely fashion? What
effective?
major factors have influenced the achievement
or non-achievement of the objectives? Are the
10. Commitment. Firm commitment of implementing
specific BDP interventions targeted based on the
agencies for program and project results and impact
most appropriate needs and demand, to achieve
monitoring, as well as efficiency in monitoring and
the greatest impact? Do the expenditure patterns
evaluation.
of the program activities reflect priorities, areas
of focus and targets of the BDP? To what extent is
the delivery of the BDP interventions consistent
with international best practices in the context of
recovery and post-conflict environment?
d. Efficiency. How cost-effective are the BDP strategic
interventions and program activities delivered to
achieve the targets? Are the implementing tools and
management structure efficient? Have the activities
been properly managed and supported? To what
extent is the RbM&E Body able to appropriately
monitor and evaluate the success of the BDP
strategic interventions and program activities?
e. Inclusiveness. Have the BDP strategic interventions,
program activities, delivery, and approaches been
designed and implemented to reflect gender roles,
a more equitable participation of beneficiaries
in various social cleavages, including categories
based on ethnicity and religious affiliation, nonBangsamoro, settlers, vulnerable groups, such as
persons who are differently abled, youth, senior
C. Scope of BDP M&E
The proposed M&E framework will focus on seven
clusters: (1) economy and livelihood; (2) infrastructure,
(3) social services; (4) infrastructure; (5) environment and
natural resources; (6) culture and identity; (7) governance
and justice. These include support for normalization and
development. Strategic priorities are indicated for each
cluster. Building on the recommendations in Chapters
7 to 12, Tables 44, 45, and 46 detail the overall and
cluster strategy goals. It also lays out the logical structure
of verifiable indicators, results, outcomes, targets, and
impacts.
Monitoring of these elements will indicate how welfare,
attitude, and behavior have changed when stated goals
have been achieved. The set indicators will be based on the
recommended programs. Baseline data on the indicators
will be collected to measure initial conditions. While
the focus of RbM&E is on results and performance, and
ideally, on impact, the RbM&E system will also monitor
intermediate inputs and outputs in attaining the goals.
citizens, children, among others? Were the projects’
benefits equitably shared?
f. Sustainability. To what extent will the benefits
of the BDP strategic interventions, including the
flagship programs, continue once funds are out or
once the Bangsamoro Government replaces the
BTA? What factors influence the sustainability or
nonsustainability of the various elements of the
177
Table 44: Overall Goal and Strategies of the BDP
Agencies
Overall Goal: Build the foundations of a functioning “just economy” that will
strengthen institutions, provide equitable delivery of social services and promote
jobs and livelihood, and establish security and rule of law.
Strategies: Address the development challenges in the Bangsamoro:
• Through use of an integrated approach to transform the institutions of the
state and restore confidence among citizens to build a society that is resilient
to external stresses;
• By giving priority to socioeconomic interventions tailored to the local
environment; and
• By targeting those areas most prone to social exclusion, poverty, and violence.
More specifically, the BDP shall pursue:
• Investments for social justice;
• Support for economic growth and production; and
• Support for conflict-vulnerable and environmentally vulnerable areas.
Table 45: Logical Framework Matrix
Sector Strategy Goals
Outcomes
Outputs
Baseline
Targets
1. Economy and Livelihood
a. Increase productivity
• Increased utilization of
arable land
b. Increase number of halal- • Increased production
certified producers and
• Improve land productivity
service providers
• Increase labor productivity
(particularly in agriculture)
c. Higher labor force
• Increased number of
participation
registered enterprises
• Increased number of halal
d. Higher household income
certified establishments
• Improved farming and
e. Bridge labor supply gap
fishing practices
• Lower underemployment
f. Bring back out-migrated
rates
human and fiscal capital • Higher labor participation
rates
g. Trade openness
• Higher GDP per capita
• Higher household incomes
h. Improve access to credit • Stable prices
• Lower transaction costs
for farmers from farm to
market
• More skilled workforce
• Development of camps
• Recommendations based
on the completed studies
178
• Support to smallholder
farmers and fishers
• Irrigation and postharvest
facilities
• Support for private sector
• Establishment of halal
certification agency and
laboratories
• Establishment of registered
and halal-certified
establishments
• Support to micro and small
entrepreneurs
• Cash-for-work public projects
• Hiring of community
facilitators for scaledup community-driven
development
• Mobilization of health and
education workers
• Incentives for increased
banking/investment in the
Bangsamoro, including
remittances
• Incentives for young Moro
professionals
• Labor productivity in
•TBD
agriculture: PHP 70,822
(current prices); PHP
34,587 (2000 prices)
• Establishment density
(no. of establishments
per sq. km. land area),
2012: 0.28 (total)
• Ratio of establishments
to total population, 2012:
2.92 (total)
• Banked municipalities
and cities (as of
September 2013):
nine (7.6% of total
municipalities and cities)
• Unbanked municipalities
and cities (as of
September 2013):
110 (92.4% of total
municipalities and cities)
• Total bank deposits (as
of 2013): PHP 6.2 billion
(0.1% total bank deposits,
nationwide)
A N N EX ES
Outcomes
Outputs
• Feasibility studies and
detailed engineering study for
Polloc and Bongao Ports and
other areas as manufacturing
and trading hubs in the
Bangsamoro
• Mainstreaming cross-border
trade
• Study on the impact of
adopting an open trading
policy in the export
processing zones
• Representation of
Bangsamoro Government
and private sector in trade
missions and negotiations
• Microcredit (including
Shari’ah-compliant finance)
• Scoping for eco-, cultural and
resort tourism
• Developing of geological
database
• Analysis for institutional
and capacity development
requirements for
management and regulation
of extractive industries
Baseline
Targets
• Total bank loans (as
• TBD
of 2013): PhP 1 billion
(0.03% of total bank
loans, nationwide)
• Loan-deposit ratio: (as
of 2013): 0.16
• No. of institutions
engaged in microfinance
lending (as of 2011): 12*
• No. of NCMF-accredited
halal-certifying bodies:
3*
• No. of NCMF-accredited
halal laboratories: 1*
Source: * Based on
Foundation of Economic
Freedom BDP sector report,
citing figures from JICA 2011
2. Infrastructure
a. Increase volume of
people and goods, road
density
b. Increase household
c. Enhance Bangsamoro
change and DRRM for
social justice and to
mitigate displacement
• Reduced travel time for
people and goods, including
those from rebel camps
to main urban and trade
centers
• Faster processing of
passengers and cargoes in
seaports and airports
• Increased households’
• Reduced power
interruptions
• Reduced population
displaced by calamities
• Improved and paved
• % of households with
roads and bridges (FMRs),
access to electricity,
upgrading of airports and
ARMM: 58.1%
seaports
(FIES, 2012)
• Development of a transport
and logistics master plan,
including detailed engineering
design and study
• Use of river network of the
BCT as alternative and lowcost mode of transport
• Feasibility study and
detailed engineering design
for the reopening of Balo-i
Airport and development an
international airport for the
Bangsamoro
• Energy and household
electrification investments
(grid and off-grid)
• Identified mechanisms on the
use of Lake Lanao waters for
power generation
• Inventory and assessment of
renewable energy sources
• % of households
with access to
electricity:
60-65%
(end-2016)
70-75%
(end-2022)
179
Outcomes
Outputs
Baseline
Targets
• Participation rates,
ARMM:
Elementary: 70.4%
(2013–14)
Secondary: 26.1%
(2013–14)
• % Inactive youth (15–24
years old) in labor force:,
ARMM: 23% (2012)
• % adults with at least
elementary education,
ARMM: 54% (2010)
access to safe water,
ARMM: 36.6% (2012)
access to sanitary toilets,
ARMM: 22.5% (2012)
• % of children at age
1 with complete
immunization,
ARMM: 29% (2013)
• % of population with
health insurance
coverage,
ARMM: 44.2% (2013)
• Participation
rates (end-2016):
Elementary:
75–80%
Secondary:
35–40%
•Participation
rates (end-2022):
Elementary:
80–85%
Secondary:
55–60%
• % Inactive youth
(15–24 years old)
to labor force:
18–20%
(end-2016)
15–17%
(end-2022)
• % adults with at
least elementary
education:
56–58%
(end-2016)
72–74%
(end-2022)
• % of households
with access to
safe water:
50-60%
(end-2016)
60-70%
(end-2022)
• Renewable energy
development plans for BCT
provinces
• Showcase of stand-alone
household and community
renewable energy
applications
• Strengthening of Bangsamoro
electric cooperatives
through better partnerships
with private investors and
institutional development
programs
• Ambal-Simuay River flood
control
• Slope protection
• Strengthened partnerships
with local communities for
watershed protection and
rehabilitation programs
3. Social Services
a. Increase household
access to WaSH
• Increased households with
access to basic services
(e.g., access to water,
b. Increase access to
sanitation, and health
quality health services
facilities)
and reduce risk of
conflict reversal
higher education
• Increased participation
c. Improve access to quality
in primary and secondary
education and reduce
education
risk of conflict reversal,
• Increased adult and youth
toward creating a skilled
literacy
and able workforce in the • Increased population with
Bangsamoro
high technical skills
d. Increase % of population
insurance coverage
with secure housing
• Increase the share of fully
tenure
immunized children
• Increased utilization of
e. Provide safety nets
formal health facilities and
and increase access to
professional health services
services for vulnerable
• Increase the number of
groups
households with secure
housing tenure
on the completed studies
180
• Scaled-up access to water
and sanitation facilities
through the adoption of
graduated and integrated
approaches to WaSH
development
• Provision of PhilHealth cards
• Mass immunization and
feeding programs
• Health caravans
• Upgrading of health facilities
• Creative delivery
mechanisms: mainstreaming
of BIAF medics, traditional
healers, accreditation of nonLET passer but technically
competent personnel to teach
• Adult and IP education (ALS)
• Technical and vocational
skills training including
entrepreneurship
• Functional literacy programs
for out-of-school and inactive
youth and illiterate adults
• Private sector apprenticeship
for OSY
• Curriculum development and
review of madaris system
(ibtidaiya, thanawiya, kulliya)
and IP education
• Supply-side inputs for primary
and secondary education
A N N EX ES
Outcomes
Outputs
Baseline
• Inventory of health
professionals and institutions
• Modified “GI Bill” for families
of MILF combatants
• Inventory and beneficiaries
of Special Housing Needs
Assistance Package
• Inventory of Public Private
Partnership for socialized
housing
• Policies on land rights,
housing tenure
• Packages for vulnerable
groups: senior citizens, PWDs,
women, widows, youth,
orphans, etc.
Targets
• % of households
with access to
sanitary toilets:
30-40%
(end-2016)
50-60%
(end-2022)
• % of children
at age 1 with
complete
immunization:
40-45%
(end-2016)
60-70%
(end-2022)
• % of population
with health
insurance
coverage:
50-55%
(end-2016)
60-70%
(end-2022)
4. Environment and Natural Resources
a. Preserved ecological
integrity of the
Bangsamoro in
the context of
comprehensive
b. Enhanced adaptive
change and DRRM by
the communities in
Bangsamoro
• Wider forest, aquatic,
coastal, and marine area
protected
• Strong institutions for
integrated environmental
governance
• Strong institutions to
manage and support urban
ecosystem and waste
management
• Prepared Bangsamoro
communities to adapt
to man-made or natural
disasters
on the results of the
completed pilot activities
on completed studies
• Comprehensive framework
and operational guidelines for
sustainable development in
Bangsamoro
• Integrated Environmental
Governance in Lake Lanao
and Ligawasan Marsh
• Policy for Bangsamoro
Waters and Zones of Joint
Cooperation
• Comprehensive Biodiversity
Assessment of the
Bangsamoro
and operational guidelines on
Urban Ecosystem and Waste
Management
• Comprehensive Vulnerability
Assessments
• CCA/DRRM capacity building
programs
• Pilot of sustainable
forest management and
reforestation programs
completed
• Pilot of reef and mangrove
rehabilitation completed
• Forest guards and sea guards
recruited and fielded
• Completed flood or slope
control infrastructure
programs
• % of forestland to total
land area in ARMM =
51.4% (as of 2010)
• No. of sanitary landfill in
ARMM = 1
• Solid waste produced in
ARMM = 940 tons daily
• Proclaimed watershed
areas in ARMM = 28,845
ha
• Preserved
ecological
integrity of the
Bangsamoro in
the context of
comprehensive
sustainable
development
• Enhanced
adaptive capacity
for climate
change and
DRRM by the
communities in
Bangsamoro
181
Outcomes
Outputs
Baseline
Targets
5. Culture and Identity
a. Preservation and
promotion of culture
and identity of the
Bangsamoro and
other groups in the
Bangsamoro
b. Strengthened cultural
institutions to protect,
conserve, nurture, and
promote Bangsamoro
tangible and intangible
cultural heritage
c. Established and
sustained local culture,
heritage, and art groups
182
• Ethnically diverse and
tolerant community
• Civil society knowledgeable
of the Bangsamoro and IP
identity and struggles
• Visible and tangible
promotion of cultural
heritage and the arts
in schools, offices and
community gatherings
• Institutions, infrastructure,
civil society and private
sector partnerships to
support and promote
cultural tourism
• Strong institution that
support preservation
of cultural heritage in
Bangsamoro
• Mainstreamed culturallyresponsive development
initiatives
• Ethnic fragmentation
and operational guidelines for
index in ARMM = 0.85
heritage, culture and the arts,
(where 0 = perfectly
indigenous sports and games,
homogenous, 1 =
music, visual arts, literature,
perfectly heterogenous)
dance, crafts, tribal attire,
holidays, language, cuisine
• Inventory and baseline data
on heritage, culture and the
arts
• Public museums, libraries,
historical markers, language
and cultural center, and public
cemeteries open to public
• Policy paper on creation of
Bangsamoro Commission for
the Preservation of Cultural
Heritage
• Grants for textbook and
module writing
• Popularization of culture
and the arts through use
of media and other social
marketing programs, and
encouragement of indigenous
cultural activities in schools,
offices and community
gathering
• Popularization of
Bangsamoro languages and
use of indigenous languages
for basic education
• Revival of indigenous sports
in schools and interschool,
regional sports competition
• Establishment of schools of
living traditions
• Youth peace camps/trainings
awarded
• Interfaith initiatives
• Regional, national
intercultural exchange and
cooperation
• Ethnic
Fragmentation
Index = 0.85 to
1.0 (perfectly
heterogenous)
A N N EX ES
Outcomes
Outputs
Baseline
Targets
6. Governance and Justice
a. Smooth and peaceful
transition
b. More efficient public
service
c. Strong local and fiscal
autonomy
d. Improved institutional
and technical capacity
e. Improved public
accountability and
engagement with the
civil society
f. Improved budget
management
g. Improved access
to justice and legal
pluralism
• More competent public
servants with the required
technical skills
• Uninterrupted provision of
basic services
• Reduced patronage and
corruption
• Improved generation of
local revenues
• Regular M&E reports
published
• Improved land governance
• Reduction of conflict and
crimes
• Greater participation of civil
society and community in
decision making, service
delivery and monitoring
on the completed policy
studies
• More LGUs with DILG Seal of • % of LGUs in ARMM with
Good Housekeeping
SGH = 6.6% (2013)
• Key government institutions
set up governing the
transition and post-transition
periods
• Beneficiaries of trainings and
capacity-building activities
• Established Special Fund
for Rehabilitation and
Development
• Improved M&E system set up
and institutionalized
• Established “Open Data” and
open governance, and conflict
monitoring systems
• Strong conflict management
body
• Performance-based budget
management system with
strong internal audit and
control systems
• Completed Organizational
Performance Implementation
Framework and Performance
Evaluation System
•Strengthened Shari’ah and
traditional/tribal justice
systems and establishment of
alternative dispute resolution
system
• Completed policy studies for
Bangsamoro Parliament
• % of LGUs in
Bangsamoro
with SGH = 20%
(2016)
183
Table 46: Indicators to Monitor and Evaluate
Strategy Goal Indicators
Outcome Indicators
Output Indicators
% utilization of arable land
volume of agriculture output
No. of agricultural enterprises
No. of households engaged in
backyard farming
Value and volume of produce
from backyard farming
Farmers’ average selling price
Markets’ average selling price
Average size of farmers’
agricultural land
Average size of agriculture
cooperative lands
Size of Islamic banks
Loans and deposits of Islamic
banks
Size of halal enterprises
Highlights and recommendations
from studies completed
• Inventory of support for and
beneficiaries of smallholder farmers and
fishers
• Irrigation and postharvest facilities
established
• Inventory of support for beneficiaries of
private sector
• Halal-certification agency and
laboratories established
• Inventory of registered and halalcertified establishments
• Inventory of support for and
beneficiaries of micro and small
entrepreneurs
• Cash-for-work public projects and
benefiaries
• Inventory of facilitators for scaled-up
community-driven development
• Inventory of mobilized health and
education workers
• Incentives for increased banking/
investment in the Bangsamoro, including
remittances
• Inventory of studies
• Representation of Bangsamoro
Government and private sector in trade
missions and negotiations
• Geological database
Data Gathering Tools/
Methods
1. Economy and Livelihood
a.
b.
Improved agricultural
land and labor
productivity
• agriculture output
per labor employed
• agriculture output
per hectare
• average household
income
Increase number
of halal-certified
providers
• share of
halal-certified
establishments
in total of
establishments
c.
Higher labor force
participation rate
• labor force
participation rate
• employment rate,
underemployment
rate
d.
Higher household
income
• household income
e. Bridge labor supply gap
• skilled labor supply
f.
Bring back the outmigrated human and
fiscal capital
g. Trade openness
h.
184
Improve access to
credit
•
•
•
•
•
•
•
•
•
•
•
•
•
• Onsite monitoring visit and
interview
• Monitoring report form
• Third party monitoring
• Field survey
• GIS-assisted mapping
A N N EX ES
Outcome Indicators
Output Indicators
• Number of passengers
transported
• Volume of goods transported
• Travel time for people and goods
• Farm-to-market transport cost
• Duration of power interruptions
• Price of electricity
• Number of people displaced by
natural disasters
• Length of paved roads
• Inventory of upgraded airports and
seaports
• Transport and logistics masterplan
including detailed engineering design
and study
• River networks as alternative and lowcost resource for transportation
• Study feasibility and detailed
engineering design for reopening
Balo-i Airport and development an
international airport in the Bangsamoro
• Number of electrified housholds
• Identified mechanisms on use of Lake
Lanao waters for power generation
• Inventory and assessment of renewable
energy sources
• Renewable Energy Development Plans
for BCT provinces
• Inventory of Ambal-Simuay River Flood
Control infrastructure projects
• Inventory of slope protection
infrastructure projects
Methods
2. Infrastructure
a.
b.
c.
Increase volume of
passengers and goods,
road density
Increase household
Enhance Bangsamoro
change and DRRM for
social justice and to
mitigate displacement
interview
• Infrastructure quality
survey assessment
185
Outcome Indicators
Output Indicators
Methods
3. Social Services
a.
b.
c.
d.
e.
186
Increase household
access to WaSH
• Share of households with access
to clean water
• Share of households with access
Increase access to
to sanitary toilets
quality health services • Share of households with college
and reduce risk of
graduate members
conflict reversal
• Participation rates in primary and
secondary education
Improve access to
• Literacy rates
quality education and • Share of skilled population
reduce risk of conflict • Share of households with
reversal, toward
insurance coverage
creating a skilled and
• Share of fully immunized children
able workforce in the
• Utilization of formal health
Bangsamoro
facilities and professional health
services
Increase % of
• Share of households with secure
population with secure
housing tenure
housing tenure
• Recommendations based on the
completed studies
Provide safety nets
and increase access to
services for vulnerable
groups
• Inventory of water and sanitation
facilities and beneficiaries
• Number of PhilHealth cards issued and
number
• Inventory of immunization and feeding
programs
• Inventorty of health caravans
• Inventory of upgraded of health facilities
• Number of BIAF medics and traditional
healers incorporated into the
mainstream health profession
• Number of accredited non-LET
(Licensure Exam for Teachers) but
technically competent teachers
• Number of beneficiaries of adult and IP
education (ALS)
• Inventory and beneficiaries of technical
and vocational skills training
• Inventory and beneficiaries of functional
literacy programs for out-of-school and
inactive youth and illiterate adults
• Inventory and beneficiaries of private
sector apprenticeship for OSY
• Curriculum for madaris system (ibtidaiya,
thanawiya, and kulliya) and IP education
• Inventory of classrooms and teachers
• Inventory of health professionals and
institutions
• Modified “GI Bill” for families of MILF
combatants
• Inventory and beneficiaries of Special
Housing Needs Assistance Package
• Inventory of PPP for socialized housing
• Policies on land rights, housing tenure
• Packages for vulnerable groups: senior
citizens, PWDs, women, widows, youth,
orphans, etc.
interview
•FGDs
• Field survey
A N N EX ES
Outcome Indicators
Output Indicators
Methods
4. Environment and Natural Resources
a.
Improved protection
of forest resources,
coastal marine
resources, and biodiversity
• % of protected
forest, coastal, and
marine areas
• % of forest,
coastal, and
marine resources
rehabilitated
• Change in
the number
of protected/
endangered species
b.
Improved disaster
preparedness of
communities in
disaster-prone and
vulnerable areas
• Change in the
number of
casualties of natural
disasters
• Change in the
number of
households residing
in disaster-prone
areas
• Change in the
number of people
displaced from
disaster-prone areas
• Biodiversity index
• Size of protected forest, coastal,
and marine areas
• Size of rehabilitated forest,
coastal, and marine areas
• Number of protected/endangered
species
• Number of households in
disaster-prone areas
• Number of households relocated
due to natural disasters
• Population displaced by disasters
• Number and types of disasters
• Casualties of disasters to life and
property
• Number and size of land allotted
to green/open space, greenery
landscape or park per barangay in
urban areas
• Number, types, geographic
distribution, amount of disasterpreparedness programs, and
number of people served by the
programs
• List of areas, and their sizes (hectares)
needing protection/reforestation/
rehabilitation
• Number of forest guards and sea guards
hired
• Number of people trained in disaster
preparedness
• List and geographic distribution of
endangered species
• Amount (tons per day) of solid waste
produced
• Pilot of sustainable forest management
and reforestation programs completed
• Pilot of reef and mangrove rehabilitation
completed
• Forest guards and sea guards recruited
and fielded
• List of vulnerable areas and their
locations and sizes (hectares)
• Number size (hectares), and expenditure
amount of flood or slope control
infrastructure programs
• Field survey
interview
•FGDs
survey
• Rapid biodiversity
assessment survey
187
Outcome Indicators
Output Indicators
Methods
5. Culture and Identity
a.
Preservation and promotion
of culture and identity of the
Bangsamoro and other groups
in the Bangsamoro
• Ethnic diversity index
• Part of population
knowledgeable in
Bangsamoro including IP
identity and struggles
• Number of initiatives
• Number of visible and
approved and implemented
tangible activities that
for preservation and
promote cultural heritage
promotion of culture and
and the arts
identity of the Bangsamoro
• Number of institutions
and other groups in the
engaged in cultural
Bangsamoro
tourism
• Distribution (number and
• Number of civil society
expenditure) of initiatives
groups (and their
on culture and identity
geographical distribution)
preservation, according to
that support and promote
ethno-linguistic or social
cultural tourism
groups (Bangsamoro and
• Number and amount
settlers)
of investments related
to public-private
b. Strengthened cultural
partnerships on cultural
institutions to protect, conserve,
tourism
nurture, and promote tangible
• Number of
and intangible cultural heritage
establishments, amount
of various social groups in
of investments
Bangsamoro
• Number of employees
of and geographical
• Number of cultural
distribution of
institutions, both
establishments engaged
government and
in cultural tourism
nongovernment, engaged
• Number of mainstreamed
in protection, nurture, and
culturally responsive
promotion of tangible and
development initiatives,
and geographic
• Number of programs,
distribution (halal industry,
projects, administrative
Shari’ah courts and
orders approved and
IP dispute resolution
implemented by government
system, madrasah and IP
cultural institutions for
education, etc.)
preservation, nurture and
promotion of cultural
heritage
c.
Established and sustained local
culture, heritage, and art groups
• Number of registered groups
engaged in preservation,
nurture, and promotion of
culture, heritage, and local
art
188
• Number of frameworks and
operational guidelines relevant
to promotion, preservation, and
support for cultural heritage and the
arts
• Number and geographical
distribution of tangible cultural
heritage, public museums, public
libraries, historical markers, etc.
• Number of land size, and
geographical distribution of public
cemeteries
• Number of culturally-sensitive
textbooks and modules published
and distributed
• Number and types of social
marketing campaigns that promote
the cultural heritage and arts of
Bangsamoro
• Number of indigenous sports duly
recognized by education, sports and
culture ministries and are part of the
Physical Education curriculum in
basic education
• Number, geographic distribution,
enrolment size, completion rate of
schools specializing in promotion of
living traditions
• Number and geographic distribution
of youth peace camps/trainings
awarded
• Number, geographic distribution,
and expenditure pattern of
interfaith initiatives, regional and
national intercultural exchange and
cooperation
• Cultural mapping
•Survey
• Onsite visit, interview, and
FGDs
A N N EX ES
Outcome Indicators
Output Indicators
• Number of days/hours
required to process
documents
• Volume of business
transactions (e.g.,
business registrations,
permit and license
applications, birth
certificates) completed
daily
• Number of public
officials with the
required qualifications or
specialized training
• % of total budget spent,
by agency and sector, with
explicit alignment with
physical achievements or
physical targets
• Number and amount,
by agency, sector
and program level, of
procurement through
competitive bidding
• Number of public officials
or government employees
who have relatives in the
bureaucracy
• Level and % of revenues
generated internally
• Number of titled parcels
of land
• Number of LGUs with DILG Seal of
Good Housekeeping
• Number of beneficiaries of training
and capacity-building activities, by
sector and agency, program level.
and geographical distribution
• Number of institutions and agencies
using peformance-based evaluation
• Number of agencies and their
statistical units that actively
participate and contribute data/
information to Open Data-Open
Governance platform
• Number of regular M&E reports
published
• Number of Shari’ah courts, by
geographic distribution
• Number of traditional/tribal judicial
or arbitration courts, by geographic
distribution
• Number of courts or tribunal offering
alternative dispute resolution
mechanisms
• Number and types of policy
studies completed and used as
input to deliberation on bills in the
Bangsamoro Parliament
Methods
6. Governance and Justice
a.
Low incidence of vertical and
horizontal conflict
b. More efficient public service
• Public service productivity index
c. Strong local and fiscal autonomy
• % of locally generated revenues
in total budget
d. Improved institutional and
technical capacity
• Employee attrition rates in
public offices
• Employee turnover rates in
public offices
e. Improved public accountability
and engagement with civil
society
• Number of institutions and
agencies using performancebased budgeting
• Frequency, by agency and
program level, of engagements
with civil society groups on
budgeting or planning
f.
Improved budget management
•Survey
• FGDs, interview
• Stakeholder analysis
• Onsite visit
• Number of institutions and
agencies using performancebased budgeting
g. Improved access to justice and
legal pluralism
• Volume of cases filed by
secular courts, Shari’ah courts,
traditional/tribal courts, courts
offering alternative dispute
resolution, by geographic area
• Volume of cases resolved by
secular courts, Shari’ah courts,
traditional/tribal courts, courts
offering alternative dispute
resolution, by geographic area
189
BDP Background Papers
Malik, Urooj, Allen, Thomas, Casiple, Alex, Olermo, Humza Jamil, and Ikram Tawasil. (2014). “Strategic Road Maps for the
Development of the Agribusiness Industry, Halal Food Industry, and Islamic Banking and Finance in the Bangsamoro.” A report
prepared by the Foundation for Economic Freedom for the Bangsamoro Development Agency.
Ronquillo, Suj. (2014). “Final Report on Regional Cooperation.” A report commissioned by the Asian Development Bank for the
Bangsamoro Development Agency.
Vale, Rizalyn. (2014). “Employment and Livelihood.” A report commissioned by the International Labor Organization (ILO) for the
Torres, Rolando. (2014). “Policy Brief on Bangsamoro’s Inclusive and Sustainable Agricultural Growth and Development.” A report
commissioned by the Food and Agriculture Organization of the United Nations.
Infrastructure
Philkoei International, Inc. (2013). “Needs Assessment Report for the Bangsamoro Development Agency Transitional Plan.” A study
commissioned by the Japanese International Cooperation Agency.
Social Services
Bautista, Pilar. (2014). “An Integrative Report on the Adult Literacy Component of the Education Sector for the Bangsamoro
Development Plan.” A report commissioned by the Australian Department of Foreign Affairs and Trade.
_________. (2014). “An Integrative Report on the Basic and Early Education Component of the Education Sector for the Bangsamoro
Development Plan.” A report commissioned by Australian Department of Foreign Affairs and Trade.
_________. (2014). “An Integrative Report on the Out-of-School Youth Component of the Education Sector for the Bangsamoro
Development Plan.” A report commissioned by the Australian Department of Foreign Affairs and Trade.
Guiam, Rufa. (2014). ”Logical Framework for Basic and Early Education.” A report commissioned by the Australian Department of
Foreign Affairs and Trade.
Hashim, Selahuddin. (2014). “A Report on the Maternal and Child Health and Nutrition (MCHN) Component for the Bangsamoro
Development Plan.” A report commissioned by the United Nation’s Children’s Fund.
Kalim, Sherjan P. (2014). “A Report on the Health Component for the Bangsamoro Development Plan.” A report commissioned by the
Maglana, Ma. Victoria (2014). “A Report on the Water, Sanitation and Hygiene Theme Component for the Bangsamoro Development
Plan.” A report commissioned by the United Nations Children’s Fund.
Cabaraban, Magdalena. (2014). “A Report on the Reproductive Health Component for the Bangsamoro Development Plan.” A report
commissioned by the United Nations Children’s Fund.
Bagadion, Benjamin C. (2014). “Peace, People, Planet: Proposed Short-Term Environment and Natural Resources Plan for the
Bangsamoro Transition Government.” A report commissioned by the United Nations Development Program.
190
A N N EX ES
Benito, Francis. (2014). “Final Report on the Energy Sub-Theme for the Environment Chapter of the Bangsamoro Development Plan.”
A report commissioned by the United Nations Programme.
Juan, Nerrisa. (2014). “Inputs on the Ecotourism Sub-Theme for the Environment Chapter of the Bangsamoro Development Plan.” A
study commissioned by the United Nations Development Programme.
Lasmarias, Noella. (2014). “Inputs on Ecosystems Services for the Environment Chapter of the Bangsamoro Development Plan. A
report commissioned by the United Nations Development Programme.
Lecciones, Amy. (2014). “The Environment Chapter of the Bangsamoro Development Plan: Final Report on Coastal, Marine, and
Freshwater Biodiversity Sub-Theme.” A report commissioned by the United Nations Development Programme.
_____________.(2014). “Concept Note: Strengthening Capacity of the Bangsamoro Core Territory for Wealth Creation from Philippines’
Biodiversity Genetic Pool.” A report commissioned by the United Nations Development Programme.
Queblatin, Eduardo. (2014). “Final Report on Forests and Watersheds Sub-Theme.” A report commissioned by the United Nations
Development Programme.
Tio, Jake. (2014). “Inputs on Disaster Risk Reduction, Climate Change Adaptation, and Urban Ecosystem for the Environment Chapter
of the Bangsamoro Development Plan.” A report commissioned by the United Nations Development Programme.
Umngan, Abdul Jalil. (2014). “Integrated Report on Environment, Natural Resources, and Energy for the Bangsamoro Development
Plan.” An integrative report commissioned by the United Nations Development Programme.
Culture
Poingan, Guimba. (2014). “Report on Bangsamoro Culture for the Bangsamoro Development Plan.” A report commissioned by the
Governance and Security
Barra, Hamid, Asnawil Ronsing, and Macacuna Moslem. “Paper on Shar’iah Justice.” A report commissioned by the United Nations
Development Programme.
Ragrario, Butch. (2014). “Inputs on Governance Sub-Theme for the Governance Chapter of the Bangsamoro Development Plan.” A
report commissioned by The Asia Foundation.
Ragonjan, N. and K. Tolosa. (2014). “A Paper on the Security Theme for the Bangsamoro Development Plan.” A report commissioned
by The Asia Foundation.
Pagayao, Abdul. (2014). “A Report on the Human Security Theme for the Bangsamoro Development Plan.” A report commissioned by
the Bangsamoro Development Agency.
Crosscutting Issues
Alih, Kathleen Zarah. (2014). “A Report on Bangsamoro Youth Development to Support the Bangsamoro Transitional Plan.” A report
commissioned by the Bangsamoro Development Agency.
Sajor, Indai. (2014). “Gender and Development (GAD) Support to the Bangsamoro Development Plan (BDP).” A report commissioned
by United Nations Entity for Gender Equality and the Empowerment of Women or UN Women.
Danguilan, Marilen. (2014). “A Report on the Food and Nutrition Security Plan: Central Points for the Bangsamoro Development Plan.”
A report commissioned by the United Nations World Food Programme.
191
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