BDP-IR

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Bangsamoro Development Plan

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© 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 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



Chapter 9: Social Services 71

A. Context: Education, Health, and WaSH in the Bangsamoro 72



Chapter 10: Environment and Natural Resources 93

A. Context: Rich but Fragile Natural Resources and Ecological Heritage 94


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


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

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

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D. Promoting Shari’ah Justice 126

E. Strengthening Fiscal Autonomy in the Bangsamoro 128

F. Normalization and Development

G. Summary of Priority Programs

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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 TablesTable 1: List of BDP Themes, Components, and Participating PartnersTable 2: Selected Indicators of Development GapsTable 3: Economy and Livelihood-Related Concerns, Aspirations, and Priority ProgramsTable 4: Social Development-Related Concerns, Aspirations, and Priority ProgramsTable 5: Environment and Natural Resource-Related Concerns, Aspirations, and Priority ProgramsTable 6: Culture and Identity-Related Concerns, Aspirations, and Priority ProgramsTable 7: Governance-Related Concerns, Aspirations, and Priority ProgramsTable 8: Security-Related Concerns, Aspirations, and Priority ProgramsTable 9: Top Community Priorities Based on Previous Needs AssessmentsTable 10: Sequencing of Recommended Projects/Activities for Phases I and II of the Transition PeriodTable 11: Targets on Human Capital and Household WelfareTable 12: Average Annual Production of Key Crops in ‘000 mt (2010–2013)Table 13: Sources of Credit in the Bangsamoro (2011)Table 14: Youth Unemployment and Labor Force Participation (2013)Table 15: Priority Economy and Livelihood ProgramsTable 16: Status of Electrification in ARMM (2013)Table 17: Infrastructure Strategies and Project TypesTable 18: Priority Infrastructure ProgramsTable 19: Prevalence of Undernutrition Among Children (0–5 Years Old) in ARMM (2008–2013)Table 20: Housing Needs Estimate by Housing Indicator in ARMM (2010–2017)Table 21: Access to Education for Internally Displaced Persons (2011)Table 22: Distribution of Elementary Schools by Type (SY 2013 and 2014)Table 23: Priority Social ProgramsTable 24: Forest Cover Change in ARMM in Hectares (2003–2010)Table 25: Proclaimed Watersheds in ARMM (2012)Table 26: Priority Environment and Natural Resource ProgramsTable 27: Priority Culture and Identity ProgramsTable 28: Challenges, Features, and Targets of Transition Phases I, II, and IIITable 29: Priority Governance and Justice Programs Table 30: BDP Project Steering CommitteeTable 31: BDP Advisory Council Table 32: BDP Joint Review CommitteeTable 33: BDP Core Planning TeamTable 34: Thematic Area Focal PersonsTable 35: BDP Support TeamTable 36: Thematic Area ConsultantsTable 37: National Government AgenciesTable 38: ARMM Line AgenciesTable 39: Overview of MCSOPP Consultation OutputsTable 40: Ranking of Poverty Incidence in the Philippines, by Province (2006, 2009, and 2012) Table 41: 100 Poorest Municipalities and Cities in the Philippines (2006 and 2009) Table 42: Location and Population of ICCs/IPs in ARMM, Lanao del Norte, North Cotabato, and the Cities of Isabela and CotabatoTable 43: Proposed Implementation Arrangements for RbM&ETable 44: Overall Goal and Strategies of the BDP Table 45: Logical Framework MatrixTable 46: Indicators to Monitor and Evaluate

16232929303031313236384244445663657076788182919596

104110116129152152153153154154155156158164166169173

175178178184

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List of Figures8

131824252534374141414343456060616172737374747576767777

107107113133

Figure 1: Annual Trend of GPH-MILF Armed Skirmishes (2002–2014)Figure 2: Bangsamoro Development FrameworkFigure 3: The Vicious Cycle of Injustice, Insecurity, and UnderdevelopmentFigure 4: Population Age and Gender Projections (2010 and 2040)Figure 5: ARMM Budget 2009–2014Figure 6: Current Aid Strategy and Practice: A Macro Perspective (2001–2010)Figure 7: Transforming a Vicious Cycle to a Virtuous CycleFigure 8: GRDP Growth Scenarios in Bangsamoro (2011–2016)Figure 9: Sectoral Composition of ARMM GRDP: Four-Year Average (2009–2012) Figure 10: Agriculture, Fishery and Forestry Sector Growth (1996–2012)Figure 11: Nominal Value of Production of Top 10 Major Crops in the ARMM: 5-Year Average (2008–2012)Figure 12: Total Bank Deposits in ARMM (as of end Dec 2013) Figure 13: Total Bank Loans in ARMM (as of end Dec 2013)Figure 14: Poverty Incidence in ARMM (2006–2012)Figure 15: National Road Density (2012)Figure 16: Ratio of Paved National Roads (2012)Figure 17: Ratio of Paved Farm-to-Market Roads in ARMM (2005)Figure 18: Ratio of Irrigated to Estimated Irrigable Area (2000–2012)Figure 19: Human Development Index in the Bangsamoro (2000–2009)Figure 20: Education Attainment, All Ages (2010)Figure 21: Education Attainment, 18 Years Old and Above (2013)Figure 22: Percent of Children (12–23 Months Old) with No Vaccinations (1998–2013)Figure 23: Percent of Children (12–23 Months Old) Who Received All Basic Vaccinations (1998–2013)Figure 24: Government Health Workers per 100,000 Population (2011)Figure 25: Percent of Households with Health Insurance (2013)Figure 26: Percent of Women (15–49 Years Old) with Health Insurance (2013)Figure 27: Percent of Households with Access to Improved Safe Water Supply (2011)Figure 28: Percent of Households with Access to Sanitary Toilet Facilities (2011)Figure 29: Ethnic Diversity in the Bangsamoro (2010)Figure 30: Religious Diversity in the Bangsamoro (2010)Figure 31: Principal Sources of Government Funds to ARMM (2009–2011)Figure 32: Proposed Implementation Arrangements


List of MapsMap 1: The Proposed Bangsamoro Core Territory (BCT) (2014)Map 2: Poverty Incidence, by Province (2012)Map 3: Number of Establishments by Municipality (2012) and Municipalities Served by Banks (2013)Map 4: Displaced Households in the Bangsamoro and Surrounding Areas (2009)Map 5: Agro-Edaphic Maps of the Bangsamoro and Adjacent Areas (as of 2012)Map 6: Major Airports and Seaports in Mindanao (2014)Map 7: Transportation Network in the Bangsamoro (2014)Map 8: Barangay Access to Electricity and Electrification Projects in the Bangsamoro (2014–2015)Map 9: Barangay Access to Primary Education Facilities and Distribution of Population by Barangay (6–12 Years Old) (2010)Map 10: Barangay Access to Health Centers and Distribution of Population by Barangay (2010)Map 11: Barangay Access to Waterworks System and Distribution of Household Population by Barangay (2010)Map 12: Integrated Mining Map (EO 79) (2013)Map 13: Vulnerability (2008)Map 14: Ethnic Diversity Index (2010)

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AcronymsADB Asian Development BankAFF Agriculture, Fishery and ForestryAFP Armed Forces of the PhilippinesARG ARMM Regional GovernmentARMM Autonomous Region in Muslim MindanaoARMM-DAF Autonomous Region in Muslim Mindanao- Department of Agriculture and FisheriesBBL Bangsamoro Basic LawBCT Bangsamoro Core TerritoryBDA Bangsamoro Development AgencyBDP Bangsamoro Development PlanBDF Bangsamoro Development FrameworkBIAF Bangsamoro Islamic Armed ForcesBIWA Bangsamoro Islamic Women AuxiliaryBIMP-EAGA Brunei Darrusalam-Indonesia-Malaysia- Philippines East ASEAN Growth AreaBSP Bangko Sentral ng PilipinasBTA Bangsamoro Transition AuthorityBTC Bangsamoro Transition CommissionCAA Conflict-Affected AreaCAB Comprehensive Agreement on the BangsamoroCCT Conditional Cash TransferCDD Community-Driven DevelopmentCPH Census of Population and HousingCT4T Coordination Team for the TransitionDA Department of AgricultureDAR Department of Agrarian ReformDOE Department of EnergyDOTC Department of Transportation and CommunicationsDPWH Department of Public Works and HighwaysEC Electric CooperativeFAB Framework Agreement on the BangsamoroFMR Farm-to-Market RoadFIES Family Income and Expenditure Survey

ICP Independent Commission on PolicingIDB Independent Decommissioning BodyIDP Internally Displaced Person GAD Gender and DevelopmentGAA General Appropriations ActGDP Gross Domestic ProductGPH Government of the PhilippinesGRDP Gross Regional Domestic ProductGRP Government of the Republic of the PhilippinesJCCCH Joint Coordinating Committee on the Cessation of HostilitiesJICA Japan International Cooperation AgencyJNC Joint Normalization CommitteeLFS Labor Force SurveyLGU Local Government UnitMILF Moro Islamic Liberation FrontMIM Moro Independence MovementMNLF Moro National Liberation FrontMOA-AD Memorandum of Agreement on Ancestral DomainMTF-RDP Mindanao Trust Fund-Reconstruction and Development ProgramNDHS National Demographic and Health Survey NPC National Power CorporationODA Official Development AssistancePAG Private Armed GroupPAMANA Payapa at Masaganang PamayananPDP Philippine Development PlanPSA Philippine Statistics Authority PNP Philippine National PolicePPP Public-Private PartnershipREZA Regional Economic Zone AuthoritySDF Special Development FundTISP Transition Investment Support Plan for the ARMMTJRC Transitional Justice and Reconciliation CommissionTPMT Third-Party Monitoring Team

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Foreword

In the name of Allah, Most Beneficent, Most Merciful

The challenges to nation-building are very daunting.

This is more so in the case of revolutionary organizations

that are tasked to lead governments during transitions

after successful peace negotiations. In the case of the

Moro Islamic Liberation Front (MILF), we are aware

that our more than four decades of knowledge and

experience in the struggle for the Bangsamoro right to

self-determination are hardly sufficient and relevant.

Our decision to create the Bangsamoro Development

Agency (BDA) in 2002 in pursuance of the relevant

provisions of the agreement between the MILF and the

Government of the Philippines (GPH) underpins our

solid commitment to a just, lasting and honorable peace

and sustainable development in the Bangsamoro and

its adjacent areas even while the peace negotiation is

still ongoing. As a genuine pro-people struggle, MILF

is never against development that will redound to the

improvement of the deplorable condition of grassroots

communities.

The signing of the Framework Agreement on the

Bangsamoro (FAB) and the Comprehensive Agreement

on the Bangsamoro (CAB) and the endorsement of the

proposed Bangsamoro Basic Law (BBL) to Congress

demonstrated to us the unwavering commitment and firm

resolve of H.E. President Benigno C. Aquino III to, once

and for all, address the roots of the conflict in Mindanao.

In anticipation of a scenario of peace and intensive

nation-building in the emerging Bangsamoro, we tasked

our development arm, the BDA, to coordinate with

donors and development partners, to conduct needs

assessment in the Bangsamoro, and to facilitate the

formulation of the Bangsamoro Development Plan (BDP).

We are proud that despite seemingly insurmountable

challenges that they faced in the course of crafting

the BDP, the men and women of BDA rose with firm

determination to the challenge of designing a blueprint for

development that seeks to address the fundamental needs

and aspirations of the Bangsamoro people, who have lived

in a vicious cycle of injustice, conflict, and poverty for

generations.

This Plan is intended to bring about equitable, inclusive,

and sustainable recovery and development of Bangsamoro

areas whose constituents also include both indigenous and

migrant communities.

The Plan takes into consideration the unique needs

and aspirations of the Bangsamoro people. It includes

the promotion of economic growth, equal access to

employment and livelihood opportunities, human capacity

development, and elimination of social and economic

inequities that have resulted from decades of neglect,

historical injustice, poverty, and inequality.

To ensure attainment of these objectives, we adopted a

comprehensive framework that is based on the Sustainable

Human Development and Peacebuilding Frameworks

combined with the Bangsamoro core values of khalifa

(stewardship), piety, transparency, accountability, and

inclusiveness, among others. We made sure that these

principles were adhered to when community visioning

exercises and consultations were done among different

stakeholders in our communities within and outside the

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proposed Bangsamoro core territories, in addition to the

technical inputs contributed by our expert Bangsamoro

focal persons as well as the technical experts deployed

by our local and international partners.

Cognizant of the difficulties in crafting a plan for

communities emerging from conflict, we convey

our sincere thanks to all aid agencies, development

partners, and counterparts in government who

collaborated with BDA, thus paving the way for the

realization of this Plan. Your sincere support opened a

window of opportunity for our vision for a peaceful and

progressive Bangsamoro to possibly see the dawning of

a new day.

The transition period to the Bangsamoro is very short

and this Plan will remain a plan if not implemented

through different programs and projects identified in it.

It is of crucial importance, therefore, that aid agencies

and development partners who accompanied us early

in our journey towards lasting peace and development,

continue to walk with us until we are able to jumpstart

a “just economy” that will provide equal access to

livelihood, jobs, justice, and security to all residents of

the Bangsamoro in the short and medium terms.

The fruits of our struggle, attained not only through the

sweat and tears of our mujahideen and their families

but more so through the blood and lives of our martyrs,

are not only for MILF members. It is for the entire

Bangsamoro to partake regardless of ethnic, religious,

and political affiliations including the indigenous peoples

and migrant communities living in our midst. Once our

objectives are attained, it is not only the Bangsamoro

people that will be benefited but the entire Filipino

people as well.

Let this Plan be an enduring legacy of our struggle for the

Bangsamoro of today and tomorrow.

AL-HAJ MURAD EBRAHIMChairmanMILF Central Committee

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Acknowledgements


Early in the creation of the Bangsamoro Development

Agency (BDA) in 2002, we aspired to formulate a

Bangsamoro Development Plan (BDP) that would serve

as a comprehensive roadmap for the just, equitable,

and sustainable reconstruction and development of

Bangsamoro communities ravaged by several decades

of armed conflict. At the BDA, we have been seeking

to address the fundamental needs and aspirations of the

Bangsamoro as a people, who have lived in a vicious

cycle of injustice, violence, and poverty for generations.

However, constraints on technical expertise and other

resources hindered the realization of this dream.

The signing of the Framework Agreement on the

Bangsamoro (FAB) on 15 October 2012 suddenly

changed the outlook of donors and development partners

from one of indifference to one of eagerness to support

the preparation of the Plan. This is understandable, since

the FAB is the first breakthrough agreement that has

solidly galvanized the commitment of the Moro Islamic

Liberation Front (MILF) and the Government of the

Philippines (GPH) to peacefully resolve the decades-old

conflict in Mindanao. The signing of the Comprehensive

Agreement on the Bangsamoro (CAB) on 27 March 2014

further reinforced confidence in the positive outcome

of the peace process. Indeed the FAB paved the way

toward the crafting of a blueprint for development in the

Bangsamoro.

As a demonstration of their overwhelming support,

aid agencies, and development partners responded

positively to the convening of the MTF-funded 1st

Donors Forum conducted by the BDA at the Asian

Institute of Management Conference Center Manila on

3 September 2013. The basis of this important work is an

official directive from no less than the Chairman of the MILF

Central Committee that mandated the BDA on 22 March

2013 “to coordinate with donors and funding partners,

to conduct needs assessment in the Bangsamoro, and to

expedite the formulation of the Bangsamoro Development

Plan.”

The schedule of completion of the Plan was set for March

2014; however, this was initially hampered by unexpected

events beyond the control of BDA and its development

partners. The destructive earthquake that hit Bohol and the

super typhoon Yolanda that devastated Tacloban and other

adjoining areas in the Visayas region temporarily shifted the

attention of aid agencies from the BDP to the immediate

relief and rehabilitation of these ravaged areas. In addition,

there were also other unforeseen technical challenges and

geographic location issues that were encountered along the

way while implementing the various activities. All of these

issues contributed to the delay of the plan completion.

This work is rendered extraordinarily challenging by the

fact that it is being done for the Bangsamoro Homeland that

is just emerging from a long history of violent conflict. We

are well aware that we have to set overarching targets that

cannot be easily translated into numerical figures such as

stability and confidence building, while at the same time,

realizing the need to set quantifiable goals in other thematic

areas of the Plan. In so doing, we have to be constantly

mindful of utilizing a peacebuilding lens believing that no

amount of prosperity could be achieved and preserved if

the roots of the conflict are not addressed.

We tried our best to make the planning activities as

participatory and inclusive as possible to ensure ownership

of the plan by all stakeholders in the Bangsamoro. We

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derived inputs from reports of various technical experts

who conducted research, analyzed data, and formulated

recommendations. We extensively utilized a bottom-up

approach through our community visioning exercises

and grassroots consultations to determine the real needs

and aspirations of Bangsamoro communities from the

people themselves within and outside the proposed core

territories.

This work is designed as a plan by the Bangsamoro for the

Bangsamoro whose constituents include other indigenous

peoples and settler communities. It is a means by which

the Bangsamoro dreams and aspirations as a people will

be finally realized. But, with all humility, the completion

of this project would not have been possible without the

support of local and international funding agencies and

development partners who mobilized financial assistance

and technical experts to support the BDA-BDP Team in the

conduct of its activities.

We express our gratitude to the World Bank-managed

MTF and all its donor partners—the European Union,

the Department of Foreign Affairs and Trade (DFAT) of

Australia, the Department of Foreign Affairs, Trade and

Development (DFATD) of Canada, the New Zealand

Ministry of Foreign Affairs and Trade (NZFAT), the Swedish

International Development Agency (SIDA), and the United

States Agency for International Development (USAID)—for

allocating funds and deploying local and international

consultants for assisting the BDA Core Planning Team.

We also recognize the significant support of the Japan

International Cooperation Agency (JICA) in mobilizing

consultants who worked on several thematic and sub-

thematic areas of the plan and for deploying consultants

also in the BDP Core Planning Team.

We acknowledge the very important contributions of the

agencies of the United Nations (UN) and the International

Organization on Migration (IOM) that addressed potential

gaps that could have rendered the Plan incomplete if

left unattended. The deployment of their consultants to

assist the Core Planning Team to complete its task even

after the submission of reports on the different thematic

and sub-thematic areas undertaken by relevant agencies

is a testament to their unwavering support for peace and

development in Mindanao.

Our thanks also go to the Asian Development Bank

(ADB) for providing invaluable support to our Advisory

Council and in procuring technical experts who

assisted us in producing a study on the sub-themes on

infrastructure and regional cooperation.

The Asia Foundation (TAF) also deserves our sincere

appreciation for providing technical experts who worked

on the thematic areas of governance and security.

Our Plan would have been incomplete without the

attention given to the private sector initiatives particularly

in agribusiness, halal industry and Islamic banking and

finance. It is a fact that private investment serves as the

real engine for economic growth and development in

the community. Thanks to the team of experts provided

by the Foundation for Economic Freedom (FEF) who

conducted an MTF-funded study for the BDA, entitled

“Strategic Roadmaps for the Development of Agribusiness

Industry, Halal Food Industry, and Islamic Banking

and Finance in the Bangsamoro” dated July 2014. This

study also benefited from parallel workshops conducted

by the FEF and the Philippine Council for Islam and

Democracy (PCID) and funded by the Australian

Government on “Private Investment Opportunities in the

Bangsamoro” that commenced in November 2013. Both

the aforementioned study and workshops have provided

vital inputs in the formulation of the BDP.

One herculean challenge in formulating the Plan was the

inaccessibility of some available data and other statistics

that were needed in carrying out the analysis by the

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consultants and technical staff of the BDP team. Getting

these needed data would have been impossible without

the cooperation of the different regional and national

line agencies of the government. In particular, we would

like to express our thanks to the consistent support of the

National Economic and Development Agency (NEDA),

Office of the Presidential Adviser on the Peace Process

(OPAPP), and the Department of Finance (DOF) for

facilitating the timely cooperation of various government

agencies.

Also, we are deeply indebted to all members of the

BDP Project Steering Committee, BDP Core Planning

Team, BDP Advisory Council, and BDP focal persons,

as well as local and international consultants and non-

government organizations such as the Consortium of

Bangsamoro Civil Society (CBCS) and the Mindanao Civil

Society Organizations Platform for Peace (MCSOPP) for

contributing to the successful formulation of this Plan.

Without their sincere and untiring efforts, this project

would have remained a dream.

Lastly, our sincere gratitude goes to our principal, the

MILF Central Committee, particularly the Honorable

Chairman Al-Haj Murad Ebrahim for entrusting to us

this difficult mission. It is through their inspiration and

guidance that we were able to accomplish this Plan.

Finally, all our praises and thanks belong to our Almighty

Allah for giving us the strength, perseverance, and

wisdom to fullfil a daunting task—the preparation of

the BDP. May this Plan be instrumental in realizing

our dream for a dynamic, peaceful, and prosperous

Bangsamoro.

DR. SAFFRULLAH M. DIPATUANChairman, Bangsamoro Development Agency Chairman, BDP Project Steering Committee

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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 lifeenhanced by inclusive and sustainable economic opportunities.

In pursuit of this envisioned society, the Bangsamoro shall be supportedby responsive, participatory, and transparent governance systemsthat are reflective of the Bangsamoro’s distinct cultural identity,

and the right to self-determination.

The Comprehensive Agreement on the Bangsamoro (CAB)

is the shared victory of the Bangsamoro and the Filipino

people as a whole, paving the way for the lasting resolution

of armed conflict in Mindanao and the establishment of

the Bangsamoro Government as a meaningful platform for

self-governance. However, the CAB and its component

agreements are but part of a longer journey. Despite its

potential natural and human resources, the envisioned

Bangsamoro core territory has historically been the

depressed region in the country. Plagued by limited

livelihood opportunities, inadequate social services,

inadequate institutions, and deep political, cultural and

economic inequity, generations of systemic injustice and

armed violence in the Bangsamoro have created serious

development challenges that must be overcome.

It is in this context that the Bangsamoro Development Plan

(BDP) seeks to articulate the Bangsamoro people’s most

fundamental needs and aspirations. It acknowledges that

enduring peace and stability can be attained through just,

inclusive, equitable, and highly tangible socioeconomic

rehabilitation, reconstruction, and development that

address the underlying causes of conflict in Bangsamoro

communities.

Guided by the Bangsamoro Development Framework

(BDF), embedded in this vision of attaining a “just,

peaceful, and prosperous society,” are the following

principles:

• Inclusiveness—guaranteeing that the benefits of

economic growth and the dividends from the peace

process shall be shared by all stakeholders in the

Bangsamoro territory, regardless of political or

ethnic affiliation, gender, or creed;

• Sustainability—ensuring that any growth or

development strategy pursued should not be at

the expense of access, use and enjoyment of God-

given natural resources by future generations of

Bangsamoro;

• Accountability—requiring that both the public

and private sectors be responsive to the needs of

the Bangsamoro’s constituents, that active citizens’

participation in all areas of development in the

region be encouraged, and that transparency and

accountability mechanisms in the use of public

resources and funds be built;

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• Cultural sensitivity—requiring that development

strategies be respectful of the culture and identity of

the various ethno-linguistic groups in the Bangsamoro

territory, in recognition of the collective struggle to

build a just, humane, and prosperous society;

• Self-reliance—recognizing that the strength of the

Bangsamoro lies in its ability to build and develop

its internal capacities, mobilizing local talents and

resources as the basis for just and equitable external

partnerships in and outside the region; and

• Self-determination—upholding the collective rights

of people to determine their own future, and by

virtue of that right, determine their political status,

and to freely pursue their economic, social, spiritual,

and cultural development.

Attaining a vision is a long-term agenda, and the aspiration

to a truly just, peaceful, and prosperous Bangsamoro as

stated above is no exception. Decades of hard work and

sustained resource investments will be needed to reach

wide latitude of development, let alone full transformation

of the Bangsamoro into a normalized society with a robust

and diversified economy. Hence, this Plan provides a clear

roadmap for immediate post-Agreement rehabilitation

and development, parallel to the ongoing political

and normalization transition that seeks to address the

socioeconomic roots of the Bangsamoro Question with

honor, justice, and dignity for all.

xvi

2C H A P T E R 1Introduction

1

1Introduction


2

A. BackgroundOn the 27th of March 2014, the Moro Islamic Liberation

Front (MILF) and the Government of the Philippines

(GPH) signed the Comprehensive Agreement on the

Bangsamoro (CAB). As the culmination of 17 years of

peace negotiations, the CAB paves the way for the just

and peaceful resolution of armed conflict in Mindanao

and the establishment of the Bangsamoro Government.1

The CAB and its constituent parts have set in motion

a process of transition from the Autonomous Region

in Muslim Mindanao (ARMM) to a new Bangsamoro

political entity. The Bangsamoro Transition Commission

(BTC) has drafted a Bangsamoro Basic Law (BBL)

that, following Congressional and popular approval

through a plebiscite, will lay the legal foundations for

the autonomous region. Once the BBL is passed, a

Bangsamoro Transition Authority (BTA) will assume all

devolved powers of the new political entity and function

as the interim Bangsamoro government until elected

officials can assume office following elections in May

2016.

Parallel to the political process of establishing a new

institutional framework for governing the Bangsamoro

will be a normalization process through which

communities affected by the decades of armed conflict

in Mindanao can return to a peaceful life free from

fear of violence and crime. This will include systemic

policing reforms, decommissioning of MILF forces,

and redeployment of units of the Armed Forces of

the Philippines (AFP). Measures toward justice and

reconciliation during the transition period, as well as

comprehensive socioeconomic programs, will allow

communities to “achieve their desired quality of life,

which includes the pursuit of sustainable livelihoods

and political participation within a peaceful deliberative

society.”2 The Framework Agreement on the Bangsamoro

(FAB) further commits the Parties to “intensify…efforts

for rehabilitation, reconstruction and development of the

Bangsamoro.”3 These processes are inherently political

and are subject to continued negotiation between the

Parties.

It is against this background that the Bangsamoro

Development Agency (BDA)—as the MILF’s mandated

agency to “determine, lead and manage rehabilitation

and development efforts in conflict-affected areas,”4 and

with more than a decade of experience in delivering

development and humanitarian assistance across

Bangsamoro areas in coordination with international

partners—was tasked by MILF Chairman Al Haj Murad

Ebrahim “to coordinate with donor and funding partners,

to conduct needs assessment in the Bangsamoro

immediately, and to expedite the completion of the

formulation of the Bangsamoro Development Plan

(BDP).”5 The directive echoes provisions in the FAB

and the Annexes on the importance of the BDP as a

development blueprint for the Bangsamoro.6

Introduction1

2C H A P T E R 1Introduction

3

B. ObjectiveIn formulating the Plan, the BDA is guided by the

fundamental tenets of equity and inclusiveness. As

reaffirmed by Chairman Murad in his statement at the

signing of the CAB, the Agreement “is not only for the

MILF. It is for the MNLF as well, as much as it is for all

the Muslim ethnic tribes, the Christian settlers, and the

Indigenous Peoples in the prospective Bangsamoro

Government territory.”7 In this regard, the BDP has been

crafted in close collaboration with national and regional

government agencies, civil society organizations, and

development partners, and based on extensive community-

level 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 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;

3. Sustain the momentum of the peace process by

providing strategic directions for regular delivery and

basic services in Bangsamoro communities during

and beyond the transition period;

4. Assist the BTA in taking a leadership role in the

implementation of the post-conflict development

process;

5. Help facilitate a seamless institutional transition that

will take place in 2016 as provided for by the FAB;

and

6. Identify and recommend priority projects to the BTA.

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 PlanAgainst 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.


4

• Chapter 4 assesses the current situation in the

Bangsamoro area, including the regional development

challenges and opportunities involved in breaking the

cycle of conflict, poverty, and underdevelopment.

• Chapter 5 presents the results of Community Visioning

Exercises (CVEs) conducted by the BDA to determine

the needs, aspirations, and sources of dissatisfaction in

selected Bangsamoro communities. It also links to the

current situational assessment in the Bangsamoro as an

attempt to validate the findings.

• Chapter 6 articulates a strategy to achieve the vision

of the BDP and provides short-term recommendations

and indicative directions for the medium term to

realize the vision for the Bangsamoro.

• Chapters 7 to 12 further break down the strategy

into sectoral targets and recommendations for the six

thematic areas of the BDF.

• Chapter 13 outlines the proposed implementation

arrangements and financing modalities to ensure

that recommendations are effectively and efficiently

implemented.

• Chapter 14 identifies possible implementation

challenges that will be encountered and proposes

mitigating measures to address these risks.

• Chapter 15 outlines a Results-based Monitoring

and Evaluation system to track the progress of

implementation and lessons learned.

Listings of priority programs are provided in Annex A.

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.

NOTES

C H A P T E R 2History and Analysis of Conflict in the Bangsamoro

5

2History and Analysis of

Conflict in the Bangsamoro


6

A. A Brief History of the Bangsamoro StruggleThe history of conflict in Mindanao can be traced back

to Spanish colonization in the 16th century. By then,

Islam had already taken root in Mindanao,9 having

been introduced in the 13th century by Arab traders and

promoted by missionaries from Indonesia and Malaysia

in the 15th and early 16th centuries. In line with Islamic

tradition, a governance structure was in place in the form

of Sultanates.10

The ability of the Muslims to thwart successive attempts

of the Spanish colonial forces to subjugate them set

their people apart from the northern inhabitants of the

Philippine archipelago, most of whom were conquered

and converted to Christianity. Deep distrust and

suspicion11 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

its inhabitants. Intermittent wars were fought between

the Spanish invaders and their local Christian allies and

Muslim fighters throughout three centuries of Spanish

colonial rule.

The advent of American colonial rule did little to

change the situation. The American regime passed a

series of land laws12 that favored settlers and private

corporations at the expense of the Moros. This, along

with the implementation of land titling programs in

Mindanao anchored in a property rights13 regime alien to

the customs and traditions of the Moros, led to massive

dispossession of Moro lands by settlers and private

investors.

After the Philippines gained independence from the

United States, a series of land resettlement programs in

Mindanao in the 1950s and 1960s further accelerated

this dispossession. The resettlement programs were

undertaken to ease the social unrest spawned by the

Communist-led Huk rebellion in the islands of Luzon

and the Visayas and, purportedly, to further develop

Mindanao by exploiting its vast natural resources.14

In the late 1960s and early 1970s, tension increased

between the settlers and Moros as land scarcity grew and

centuries-old distrust continued between the two groups.

The contemporary armed conflict between the

government in Manila and the Moros was triggered

by the Jabidah massacre in 1968,15 which led to the

establishment of the first Moro separatist groups initially

with the founding of the Moro Independence Movement

(MIM) and eventually the Moro National Liberation Front

(MNLF).

The declaration of martial law by President Ferdinand

Marcos in 1972 transformed the conflict from a

simmering rebellion into a full-blown war. Ultimately

realizing that he could not achieve total victory against

History and Analysis ofConflict in the Bangsamoro2


7

the Moro combatants, Marcos initiated the signing of

the 1976 Tripoli Agreement with the MNLF. Under this

agreement, the MNLF would drop its separatist goal in

favor of creating an autonomous government for the

Moros. In the years that followed, the conflict returned

to being a low-intensity rebellion, with the Central

Government in Manila implementing its own definition

of autonomy for the Moros.

Dissatisfied with the outcome of the Tripoli Agreement,

the MILF led by Chairman Salamat Hashim, formally

broke away from the MNLF in the signing of instrument

December 30, 1977. Chairman Salamat distinguished the

MILF from the MNLF by stressing not only a nationalist

but also an Islamic agenda.

Following the fall of the Marcos dictatorship in 1986,

under the government of President Corazon Aquino,

a new Philippine Constitution was enacted in 1987

that included provisions for autonomy in Muslim

Mindanao and the Cordillera Region. This opened further

negotiations between the GRP and the MNLF and led to

the signing of the 1996 Final Peace Agreement between

the GRP and MNLF during the administration of President

Fidel V. Ramos. The agreement provided for the creation

of the Southern Philippines Council for Peace and

Development (SPCPD) as a transitory institution before

the establishment of an expanded region to be known as

ARMM.

The MILF distanced itself from the agreement but

committed to not standing in the way of peace. However,

noncompliance by both sides to the peace agreement

and failure to deliver the peace and economic growth

promised to MNLF constituents resulted in increased

support across the region for the MILF. The MNLF’s

credibility was further eroded in 1998 when the new

administration of President Joseph Estrada did not give

full support to the peace agreement.

In 2000, concerned about the MILF’s growing strength,

the Estrada regime declared an “all-out war,” resulting

in the displacement of more than a million people, with

high human and physical costs to the entire country.

Following Estrada’s impeachment and ouster in 2001,

President Gloria Arroyo reversed her predecessor’s

aggressive policy and declared an “all-out peace” stance

toward the MILF. Peace negotiations began but broke

down when the government unilaterally attacked MILF

positions in 2003, resulting in the displacement of more

than a half a million people.

Later that year, the signing of a ceasefire agreement with

the MILF paved the way for resumed negotiations, which

culminated in the 2008 Memorandum of Agreement on

Ancestral Domain (MOA-AD). The MOA-AD provided

for greater autonomy for the Bangsamoro to govern their

affairs and an expanded ARMM territory. However, it

was challenged in the Philippine Supreme Court and

was ruled unconstitutional. There followed another

major outbreak of armed violence between some MILF

forces and government troops, displacing some 700,000

people.

It was not until mid-2010, with the newly elected

government of President Benigno Aquino III, that

negotiations resumed. In early 2011, President Aquino

personally met Chairman Murad in Tokyo to assure him

of his government’s sincerity in seeking lasting peace

with the MILF. In October 2012, the GPH and MILF

peace negotiating panels, through mediation by the

Malaysian Government, reached a breakthrough and

signed the Framework Agreement on the Bangsamoro

(FAB).

A series of negotiations provided the details of the FAB,

which are contained in four annexes pertaining to: (1)

Transitional Arrangements and Modalities; (2) Wealth

Sharing and Revenue Generation; (3) Power Sharing;16

and (4) Normalization. The signing of the Comprehensive

Agreement on the Bangsamoro signaled the start of a new

phase in the relationship between the MILF and the GPH

and the difficult task of implementing the peace accord

as embodied in the proposed BBL.


8

B. Conflict and Development Analysis of the BangsamoroConservative 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

certain key triggers, including competition for scarce

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

CAB, specifically the Tripoli Agreement of 2001,

commits the parties to three interlocking aspects of the

peace process: (1) Security Aspect (2) Rehabilitation,

Humanitarian and Development Aspect, and (3)

Ancestral Domain Aspect. While much work remains

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 ethno-

linguistic groups) and inter-elite violence (rido or local

clan feuds, such as over political posts and control over

Source: GPH-CCCH Info Brief (March 2012)

Figure 1: Annual Trend of GPH-MILF Armed Skirmishes (2002–2014)


9

resources).23 While distinct, these horizontal conflicts

are often closely related to the vertical conflict, and

one spills over into the other.24 Another driver of

conflict is the prevalence of the shadow economy,

or “nonconformist economic activities”25 such as the

illicit weapons and drug trade, kidnap-for-ransom

activities, informal credit and land markets, and cross-

border trade, as it intersects with the prevalence of

warlordism and clan-based violence. Economic rents

from the shadow economy are used to consolidate

political influence and patronage, reinforcing overall

insecurity and further undermining weak institutions.26

Injustice and insecurity are central to the narrative of

failed development in the Bangsamoro. Economic

development by itself cannot address the historical

grievances of the Bangsamoro or the insecurity that

affects large parts of the Bangsamoro territories. But

development can play a part in supporting the political

and security transitions that will play out in the coming

period. Accordingly, the BDP is a peacebuilding

plan that analyzes and addresses development issues

through the lens of conflict. It is driven by a strong

intention to address injustice and directly tackle

sources of discontent that drive conflict. The priorities

in this Plan are therefore different from those in the parts

of the Philippines that are not affected by conflict.

For the short term, the Plan recommends actions

and interventions that will promote stabilization

and strengthen the legitimacy of the Bangsamoro

Government. The Plan recognizes that how development

is implemented in the Bangsamoro matters as much as

how much is spent. Based on the principles described

in the next chapter, the BDP promotes distribution of

resources based on need and equity, to ensuring fair and

equal access to development opportunities for all in the

Bangsamoro. The Plan gives priority to development

approaches that are people-centered and that bring

communities together for joint planning and decision-

making, as these have been proven to build the necessary

social cohesion.

As a conflict-sensitive and peacebuilding plan, the BDP

is ultimately built around developing stronger institutions

that will deliver better services, more effective justice, and

decent jobs and livelihood for the Bangsamoro people.

Such institutions will require open and transparent

governance, partnerships between government and civil

society, and a willingness to openly engage with citizens.


10

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.

NOTES

C H A P T E R 3Plan Methodology and the Bangsamoro Development Framework

11

3Plan Methodology and the Bangsamoro Development

Framework


12

A. Guiding PrinciplesThe BDP is anchored in the Bangsamoro Development

Framework (BDF) based on the BDA core values, with

the dual objectives of sustainable human development

and peacebuilding. In line with the CAB implementation

principles of committing the parties to “acknowledge the

identity and legitimate grievances of the 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

The BDP’s technical recommendations were formulated

by thematic experts, validated at the ground level, and

complemented by Community Visioning Exercises

(CVEs) that were conducted to define the vision, needs

and aspirations, and sources of dissatisfaction across the

Bangsamoro.

B. The Bangsamoro Development Framework28

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;

Plan Methodology and the Bangsamoro Development Framework3


13

with the ultimate goal to (5) helping attain reconciliation

among communities. By reducing inter- and intra-

community conflicts across the Bangsamoro, which are

a major source of violence and distract from human and

economic development, it becomes possible to resolve

longstanding state-minority contestation over the right to

self-determination.

The political settlement between the GPH and the

MILF, supported by the international community and in

collaboration with conflict-affected communities, NGOs,

private and other actors, becomes the foundation of the

SHD Framework. At the center of the SHD Framework is a

strong commitment to governance- and institution-building

to enable the Bangsamoro to address the substantial

development challenges in the Bangsamoro after many

years of neglect. This must be accompanied by effective

social services that are essential to ensure positive health,

education, and social outcomes.

Inter-community conflicts (i.e., between Bangsamoro

and settlers) will need to be addressed through inclusive

measures, such as the equitable distribution of peace

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

and SHD Frameworks, the BDP is guided by core values

that inform the approach to all interventions, namely:

1. Vicegerency—Man, according to the teachings of

Islam, is the representative and vicegerent of the

Almighty Allah on Earth.29 This world is a trust and

man is its trustee. Prophet Mohammad (peace be

upon him) also said: “All of you are shepherds and

all of you are responsible for your herds: The leader

is a shepherd and is responsible for his subjects.”

2. Transparency—In accordance with the Philippine

Constitution, the Bangsamoro will make “full

public disclosure of all its transactions involving

public interest” and guarantee “the right of

the people to information on matters of public

concern.” This is also enshrined in Islam, where

Muslim leaders believe that Allah (glorified and

exalted be He) knows what is in one’s mind (i.e.,

Allah said, “And I know what you reveal and what

you have concealed.”)

3. Piety—God-consciousness consists in practical

manifestation of one’s faith in one’s daily life,

which means desisting from everything that

Figure 2: Bangsamoro Development Framework

Source: BDA (2014) modified from Abubakar (2013)


14

is disapproved of or forbidden. Man must be

in a state of readiness to undertake all that is

commanded and observe the distinctions between

lawful and unlawful, right and wrong, and good

and bad in life.

4. Trustworthiness—This is a virtue everyone should

possess and practice, since everyone occupies a

position of trust as a vicegerent. All believers will

be questioned in the life hereafter on how they

kept their trust.

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.

7. Excellence—A person attains the highest quality

in words, deeds, and thoughts by identifying his

or her will with that of the Almighty Allah and

harmonizing it with the Divine will to the best of

his or her knowledge and ability.

8. Accountability—Accountability means not only

accountability to the people in accordance with

the constitutional provision that “public office is a

public trust, and all public officers and employees

must at all times be accountable to the people,

serve them with utmost responsibility, integrity,

loyalty, and efficiency, act with patriotism and

justice, and lead modest lives.” Rather, it is also

shared accountability, meaning exercise of mutual

concern by both officers and the public, and above all,

accountability to the Almighty Allah, for “indeed, Allah

commands you to render trusts to whom they are due.”

The importance of these values and principles of governance

cannot be overemphasized under the BDF because it views

governance and human development as indivisible. The

soundness of governance depends on whether it sustains

human development, while an educated, healthy, and

prosperous society, in return, is required to sustain good

governance. These values and principles are not only

embedded in all the human development areas but also in all

the components of peacebuilding.

C. Technical AnalysisThe 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

transitional phase (2015 to mid-2016) when governance of

the Bangsamoro areas shall be transferred from the ARMM to

the BTA and the Bangsamoro Government; and (2) a medium-

term phase of indicative recommendations (mid-2016 to

2022) when a new governance structure will be in place,

together with its newly elected set of officers whose mandate

will include determining the development trajectory of the

Bangsamoro.

Throughout the BDP formulation process, the technical

approach, analysis, and recommendations benefited from

inputs, recommendations, and validation from the Project

Steering Committee, the BDP Advisory Council, and the BDA

Board of Directors (see Table 1).


15

Through a series of consultations and forums to generate

input and feedback, thematic drafts were presented to a

broad range of stakeholders, both inside and outside the

Bangsamoro, including national and regional government

representatives, officers of the BTC, civil society

organizations, academic institutions, stakeholder groups,

MILF specialized agencies, and development partners.

D. Clamor from the GroundTo 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.

A round of Community Validation (CV) consultations

was conducted on the draft BDP Integrative Report in the

same areas and in additional identified key locations. This

ensured that the recommended interventions in the BDP

were aligned with the identified needs and aspirations of

the Bangsamoro communities. Technical validation was

also conducted to further ensure that the infrastructure

network, both existing and proposed, would achieve its

goal of promoting connectivity and growth in the region.

E. Review of Relevant National and Regional Development PlansThe 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

socioeconomic wellbeing of the people; (3) inclusivity;

(4) promotion of transparency and accountability in

government transactions to achieve good governance;

(5) attainment of a just and more equitable society; (6)

promotion of peace, stability, and the rule of law; (7)

preferential treatment for the poor (particularly vulnerable

groups); (8) reduction of vulnerabilities among the poor

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.

F. LimitationsIn conducting the technical analysis of development gaps,

thematic consultants and the Bangsamoro Development

Plan Core Planning Team (BDP-CPT) found limited

availability of highly disaggregated data. The analysis is,

therefore, based mostly on national data, disaggregated

at the provincial and regional levels. Moreover, because

of the difficulty of obtaining data from municipalities and

barangays proposed for inclusion in the BCT, the ARMM

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.


16

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.

NOTES

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

C H A P T E R 4Current Situation, Development Gaps, and Opportunities in the Bangsamoro

17

4Current Situation, Development

Gaps, and Opportunities in the Bangsamoro


18

A. BackgroundThe Bangsamoro is located in the south of the Philippines

and its proposed core territory consists of the following

(see Map 1):

1. The present ARMM consisting of the provinces of

Maguindanao, Lanao del Sur, Basilan, Sulu, and

Tawi-Tawi, and the cities of Marawi and Lamitan;

2. Cotabato City and Isabela City;

3. The municipalities of Baloi, Munai, Nunungan,

Pantar, Tagoloan, and Tangkal in the province of

Lanao del Norte;

4. The thirty-nine (39) barangays in the municipalities

of Kabacan, Carmen, Aleosan, Pigkawayan, Pikit,

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

Bangsamoro region and have an average density of 1,070

persons per square kilometer.

The protracted nature of the conflict in the Bangsamoro

area, combined with years of limited investment and

geographical remoteness,33 has resulted in a vicious

cycle of injustice, conflict and insecurity, poverty,

militarization, marginalization and deprivation, and

underdevelopment. Figure 3 illustrates the dynamic

interrelationships of these conditions.

Figure 3: The Vicious Cycle of Injustice, Insecurity, and Underdevelopment

Current Situation, Development Gaps,and Opportunities in the Bangsamoro4

Source: BDP-CPT


19

The uncertainty caused by armed conflict and insecurity

diminishes the productivity of resources and discourages

investments and saving, resulting in poor economic

performance. Where conflict obstructs the needed

economic and political reforms and diverts activities from

the productive domains to the redistributive spheres, it

can precipitate a collapse in growth in both the short and

the long run.34

With low economic growth, few decent jobs are created,

resulting in high unemployment, predominance of low-

productivity jobs, and a high number of working-age

people opting out of the labor force. This, in turn, reduces

purchasing power significantly, leading to inadequate

demand and low revenue generation. The provision of

social services, which relies on the government’s ability

to raise revenues, is severely reduced and affects safety

nets for vulnerable groups such as women, children,

youth, and Internally Displaced Persons (IDPs). The lack

of productive jobs, combined with inadequate social

service delivery, inevitably results in reduced wellbeing

and high poverty incidence.

In an environment characterized by inadequate

institutions, the high poverty and greater deprivation

of livelihoods and social services fuel dissatisfaction

and unrest, leading to increased conflict and a greater

intensity of this vicious cycle of insecurity, poverty and

marginalization, and underdevelopment.

Primarily using data from the ARMM as a proxy for the

Bangsamoro area, this chapter presents the manifestation

of this cycle in the Bangsamoro area and key indicators

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)


20

development opportunities in the Bangsamoro that can

be leveraged to break the vicious cycle.

B. The Vicious Cycle in the Bangsamoro

B.1. Economic Performance

Decades of injustice, conflict, and insecurity in the

Bangsamoro have severely undermined the full

development of the Bangsamoro’s economic potential.

Although it accounts for 3.5% of the Philippine

population, the ARMM contributes less than one percent

of national output and has a per capita output less than

a quarter of the national average. While average annual

growth in per capita GDP between 2009 to 2013 has

been strong across the country, reaching 3.4% nationally

and 3.3% in the rest of Mindanao, ARMM registered only

a 1.0% average annual per capita GDP growth over the

same period.

Agriculture, Fishery and Forestry (AFF) is the main

component of output in the ARMM, representing 63.5%

of total value-added, with the services sector contributing

a third and industry the remaining 5%. With the lowest

gross fixed capital formation in the Philippines, primarily

concentrated in agricultural inputs, (i.e., breeding stock

and orchard development), the Bangsamoro problem

is exacerbated by its specialization on the production

of low value-added products combined with low

agricultural labor productivity. In recent years, the AFF

sector experienced a decline in output. The services

sector meanwhile is the primary driver of growth but is

constrained by very low public and private investment.

While positive economic performance does not

immediately translate to improved welfare, stable

and sustained growth and investment increase per

capita output and improve the economic opportunities

available to the population. Increasing labor productivity

through investment and entrepreneurship is imperative

if production is to shift to higher value-added and more

labor-intensive industrial and services sectors that are

capable of leading growth.

B.2. Employment

It would seem paradoxical that despite limited economic

opportunities in the Bangsamoro, unemployment at

4.6% and underemployment at 12.3% are lower than

in the rest of Mindanao (5.3% and 22.9%, respectively)

and the country (7.1% and 19.3%, respectively). But

such measurements hide actual weaknesses and are a

consequence of the fact that in a developing country

without unemployment insurance, most of the poor

cannot afford to be unemployed and must take whatever

low-productivity occupation they can find.35

This can be seen in the more telling fact that 80.6%

of employed persons in ARMM are in the “vulnerable

employment” category—being self-employed or unpaid

family workers. This is very high compared with the

38.3% national figure.36 Such employment is associated

with the low-productivity and low-income employment

options that are available to the poor. The majority of

these vulnerably employed people are male (73.5%),

self-employed (71.2%), and in the agriculture sector

(82.0%). Young people comprise 18.7% of the vulnerable

employed.

Another notable characteristic is the very low labor force

participation rate in the ARMM, which at 56% is 10

percentage points lower than in the rest of Mindanao.

Women and youth make up a disproportionate share

of the potential but non-active workforce. Women’s

participation in the labor force is typically lower because

of housework and childcare but the nonparticipation

rate of 68% in the ARMM is significantly higher than

the national and Mindanao averages of 50% and 49%,

respectively.

Meanwhile, almost a quarter of those aged between 15

to 24 are neither in school nor in the workforce. Lacking

skills to participate productively in the labor market,

the out-of-school youth are at high risk of poverty and

disaffection, which potentially can lead them to violence

and undermine social cohesion.37 The welfare impact of


21

increasing work opportunities for women and the youth

could be significant and their potential contribution to

output must not be underestimated.

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-to-

student 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 water-

borne diseases in ARMM is very high as a result.

Limited access to health facilities, lack of education

and lack of funds, and unsanitary conditions resulted

in ARMM having the highest national mortality rate of

children under five years of age at 55 deaths per 1,000

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) under-

nutrition 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


22

country. Among the consequences of malnutrition,

particularly stunting and wasting, are decreased

economic productivity, not to mention poor health and

low quality of life.

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

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 land-

grabbing 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.

The discussion highlights the development challenges in

the Bangsamoro and how underdevelopment continues

to fuel injustice and insecurity. The signing of the CAB

and ongoing governance reforms in the region have

raised expectations of positive transformation. However,

limited livelihood opportunities, inadequate 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)

Source: PSA (using FIES 2012 data) and PhilGIS (2013)


23

C. Development Gaps in the BangsamoroTable 2 presents selected development indicators in the

ARMM, the rest of Mindanao, and the Philippines to

illustrate the development gaps that need to be addressed

to break the cycle of violence and underdevelopment.

The last column shows the estimated annual change

required for the ARMM to reach the current national

averages by 2022.

It may take more than a generation (30 to 40 years)

of sustained investment from both government and

especially the private sector, for the Bangsamoro to attain

2013 national averages, given the region’s low historical

starting point. Massive institutional development and

capacity mobilization in key technical areas, combined

with a concerted effort to reduce conflict and insecurity,

will serve to accelerate the process.

While the CAB is a significant step in addressing the

vertical conflict between the Central Government and the

MILF, the Bangsamoro must address horizontal conflict,

Note: “HH” refers to households.

Table 2: Selected Indicators of Development Gaps

Indicators ARMM Mindanao PhilippinesMeasure of Gap: Annual change to achieve 2013

national average by 2022

GDP per capita, PHP (2013) - in current prices - in constant pricesSource: PSA-Regional Income Accounts

29,60814,565

79,90246,050

117,603 68,897

21.4% (in constant prices)

Poverty Incidence (%, 2012)Source: PSA

55.8 39.1 25.2 - 74,167 people

Net Enrollment (%, SY 2012–13) - primary - secondarySource: ARMM RDP

72.526.1

--

95.264.6

+ 33,098 students+ 22,051 students

Access to electricity (% HH, 2012)Source: PSA-FIES

58.1 81.2 88.8 + 24,873 households

Access to safe water source (% HH, 2012)Source: PSA-FIES

36.6 73.3 79.9 + 35,081 households

Access to sanitary toilets (% HH, 2012)Source: PSA-FIES

22.5 83.6 87.2 + 52,420 households

Seal of Good Housekeeping (% municipalities, 2013)Source: DILG

6.6 59.7 76.6 + 8 municipalities

Private Armed Groups (number & per million population, 2012)Source: PNP

43(12.3 / million

population)

3(0.13 / million

population)

86(0.91 / million

population)

- 5 groups


24

including rido and other forms of inter-communal and

inter-elite violence, which continue to be prevalent in the

region and are a significant impediment to growth.

In the current environment of insecurity and

underdevelopment, investments in the region should

be based on a complete understanding of the complex

security, justice, and economic drivers of conflict in

the Bangsamoro. Throughout the transition from the

ARMM to the Bangsamoro Government, responses must

be tailored to the specific geographical and cultural

needs and sources of dissatisfaction in Bangsamoro

communities, while addressing the needs of the

normalization process and the CAB.40

D. Development OpportunitiesDespite these huge challenges, a number of factors

can be leveraged to support the development of the

Bangsamoro.

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

various types of orchard cultivation. Its sea and freshwater

resources contribute around 18% to the national fish catch.

It also boasts mineral and non-mineral resources, though

their financial and economic viability remains to be fully

determined.

The Bangsamoro has huge human resource potential,

given its young labor force. Population projections

indicate that the working-age population will account for

72% of the population in 2040—from 63% in 2010 (see

Figure 4)—holding out the prospect of a demographic

dividend. Reconstituting, developing, and retaining the

region’s human capital and equipping it with the necessary

education, skills, and modern work ethic is key to the

development process. The untapped potential of women’s

participation in economic activity is bound to be a source

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.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


25

Tripartite Implementation Review of the 1996 GRP-MNLF

Final Peace Agreement, creates the political environment

for generating investment and improved socioeconomic

outcomes. While there are no immediate solutions for the

Bangsamoro’s deep development challenges at present, it

is hoped that the Bangsamoro Government will meet the

historical Moro aspirations for political, economic, and

cultural self-determination, while laying the foundation for

stronger institutions and better governance.

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

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.

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

amount to around PhP 15 billion for 2011 to 2014.

The total amount of donor assistance to conflict-affected

areas in Mindanao is difficult to determine because many

donor projects are not exclusive to the ARMM and cover

provinces elsewhere in Mindanao and the rest of the

Philippines. However, a conservative estimate from 2001

to 2010 puts average annual donor assistance at USD 40

million (see Figure 6).

Despite these significant financial inflows, development

indicators have not substantially improved, pointing

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

Figure 6: Current Aid Strategy and Practice: A Macro Perspective (2001–2010)

Source: Ateneo School of Government (2014)43

Source: Adriano and Parks (2013)


26

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).

NOTES

C H A P T E R 5Clamor from the Ground

27

5Clamor from the Ground


28

A. Community Visioning Exercises: Results and InsightsTo ensure that the BDP adequately targets the priority

needs of its beneficiary communities, a total of ten44

one-day CVEs were conducted across the proposed

Bangsamoro and expansion areas representing the

ethnic and religious diversity of the stakeholders in the

Bangsamoro. Participants included members of Muslim

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

to the clustering of the report into six broad themes that

also partly guide the structure and the content of this Plan:

(1) economy and livelihood; (2) social development; (3)

environment and natural resources; (4) culture and identity;

(5) governance; and (6) security. The key messages from

each theme are presented below.46

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.

Clamor from the Ground5


29

A.2. Social Development

Social development issues were equally prominent in

the responses of participants in the CVEs, reflecting the

substantial lag in social service provision and individual

development outcomes across the Bangsamoro (see Table

4). Poor access to health and education facilities drives

the vision and aspirations, which also reflects the plight of

IDPs and their lack of secure housing. Of key importance

to the peacebuilding aspect of the BDP is the prevalence

of out-of-school youth (OSY), whose lack of opportunities

contributes to a disaffected society susceptible to

nefarious influences, including drugs, gambling and

violence, teen pregnancy, and early marriage.

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, mini-coop, Islamic finance)

Table 4: Social Development-Related Concerns, Aspirations, and Priority Programs


Inadequate access to health services and facilities

Reliable access to health services and facilities

Construction, rehabilitation, and staffing of health centers

Poor provision of education (including madaris)

Quality educational system reflective of religious diversity

School/Madrasah construction and 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


30

A.3. Environment and Natural Resources

The CVEs reinforced the importance of environmental

stewardship across the Bangsamoro (see Table 5).

Many of the Bangsamoro, and also IPs, associate their

very existence with their natural resources. Therefore,

in association with the Bangsamoro people’s right

to self-determination, environmental restoration,

and sustainable management should be streamlined

in connection with the economic development of the

Bangsamoro. Coupled with this is reliable access to

personal and communal lands, conflict over which

continues to be a major issue across Bangsamoro.

A.4. Culture and Identity

As with the environment, communities understand

the CAB as an expression of their right to self-

determination. Related to that is the equal expression of

the multicultural societal fabric of the Bangsamoro. As

part of a peacebuilding effort, supporting the recognition

and sharing of the various religious and cultural traditions

of the Bangsamoro people can help foster social cohesion

(see Table 6).

Table 5: Environment and Natural Resource-Related Concerns, Aspirations, and 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)

Table 6: Culture and Identity-Related Concerns, Aspirations, and 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


31

A.5. Governance

Transitioning from the ARG structure to the Bangsamoro

Government with a parliamentary form, along with the

associated human resource capacity development, will

require substantial effort. At the same time, addressing

the governance issues identified in the CVEs—

particularly corruption—will be a priority for the new

government (see Table 7). Building a new government

with institutions able to provide citizen security, justice,

and job opportunity will have one of the most significant

impacts in breaking the cycle of conflict.

A.6. Security

As a socioeconomic development plan, it is difficult for

the BDP to address security issues directly. However,

the protracted history of violence and conflict plays an

important part in shaping the views of the Bangsamoro

people. Hence, security was one of the main themes

identified by the CVEs (see Table 8). These should,

therefore, be addressed in parallel by the relevant

institutions to create an enabling environment where

socioeconomic interventions can help foster stability and

prosperity.

Table 7: Governance-Related Concerns, Aspirations, and 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

Table 8: Security-Related Concerns, Aspirations, and 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 OutputsThough representative of the geographical and ethnic

diversity of the Bangsamoro, the CVE process, in the

limited time available, covered only a sample of the

proposed territory and population. However, the

CVE results were cross-validated and compared with

parallel and past processes to ensure they were aligned

with the views expressed by a broader constituency of

stakeholders and potential beneficiaries of the BDP.


32

B.1. Community Consultations on the Bangsamoro Basic Law (BBL)

The BTC, in line with its mandate to draft an inclusive

BBL, conducted an extensive series of community

consultations. Through a partnership with the

Mindanao Civil Society Organizations Platform for

Peace (MCSOPP), it held more than 120 community

consultation sessions across the potential core territory

and expansion areas.

In drafting the BDP, the BDA coordinated with MCSOPP

to draw on data gathered in the consultations. While the

consultations on the BBL focused primarily on political,

legal, and institutional concerns, the issues identified

by the population through the MCSOPP process, and

the suggested remedies, closely match those of the CVE

exercise. These include the major themes of security,

governance, social services, livelihood, and environment.

An overview consolidation of the CVE, CV, and MCSOPP

outputs is in Annex D (Clamor from the Ground).

B.2. Alignment with Previous Regional Analysis of Development Priorities

Several Official Development Assistance (ODA) partners

have conducted detailed analyses of the needs and

priorities of the Bangsamoro people based on community

consultations across the ARMM and in potential expansion

areas. Through a desk review, BDP confirmed the

close alignment of the aspirations, needs, and priorities

identified by the CVEs with those described in previous

studies47 in Table 9.

The results of these studies provide a regular polling

of the issues, aspirations, and priorities of Bangsamoro

communities over the past decade of neglect and reinforce

the continued underdevelopment experienced in the

Bangsamoro. The alignment of the results of the MCSOPP-

led consultations on the BBL with earlier socioeconomic

assessments and development plans, as well as the CVE

results, confirms that the CVEs provide a sound basis to

guide the priority programs of the BDP.

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).

NOTES

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

C H A P T E R 6Strategy and Recommendations

3333

6Strategy and Recommendations


3434

A. Overall Goal of the Bangsamoro Development PlanThe immediate objective of the BDP is to provide an

immediate short- and medium-term vision and strategy

for the recovery and development of the Bangsamoro

based on its unique needs, anchored in justice and

building a peaceful and prosperous society emerging

from long years of conflict. The BDP will build the

foundations of a functioning “just economy” that will

strengthen institutions and promote greater access to

social services, jobs and economic opportunities, and

citizen security, justice and the rule of law. In shifting the

economy toward high value production that improves

overall welfare, promoting inclusive and sustainable

growth, ensuring a proper and more transparent and

accountable distribution of public funds, and establishing

a peaceful and stable society, the BDP will help the

Bangsamoro break the vicious cycle of injustice, insecurity,

and underdevelopment, fostering a virtuous cycle where

sustained poverty reduction can take hold (see Figure 7).

Strategy and Recommendations6

Figure 7: Transforming a Vicious Cycle to a Virtuous Cycle

Source: BDP-CPT


3535

B. Strategic InterventionsThe BDP must address these challenges through an integrated

approach of transforming the institutions of the state and

restoring confidence among citizens to build a society that is

resilient to external stresses.

However, with limited resources, priority socioeconomic

interventions must be tailored to the local environment and

focused on areas most prone to social exclusion, poverty, and

violence.

1. Investments for Social Justice. Increasing access to basic

services and employment and livelihood opportunities

are necessary to promote social justice. Where poverty

incidence is low but the number of poor people is high

(e.g., in densely populated urbanized communities),

programs must be tailored to target those most in need.

Where poverty incidence is high but the number of poor

people is low (e.g., in rural areas), programs must benefit

the whole community.

2. Support to Economic Growth and Production. Where

there is potential for improving productivity or expanding

capacity, particularly in small-scale enterprise farming

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.

To maximize the benefits, build synergies across the region,

and foster a strong common growth objective, interventions

will further be designed to ensure points of geographic

convergence across sectoral interventions. With a strong

complementary institutional reform and strengthening program,

the BDP will help lift the Bangsamoro to higher sustained

growth in the medium and the long term.

C. PrioritiesTable 10 shows the sequencing of projects/activities

envisaged during the transition period of Phase I and into

the Bangsamoro Government in Phase II. Further details

of the recommended list of projects under the various

sectoral concerns are discussed in the next chapter. As

a general principle, priority programs and projects are

selected on the basis of their ability to restore confidence

in the peace process and build “inclusive enough

coalitions” to support reform.

Programs that generate jobs and improve the quality of

life will be a top priority. Those that open up access to

culturally important initiatives, such as Islamic financing,

halal industry development, support for madaris, and

cultural activities to record and celebrate the rich history

of the Bangsamoro people will also be given priority in

the initial period.

Finally, the Bangsamoro will embark on programs

that will put the region on track to build legitimate

institutions—those with technical capacity and

accountability—that will sustain the gains of the FAB and

CAB.

D. Potential ImpactsThe 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

catch up with the rest of the nation.

Central Government spending during the transition

period (2015 to mid-2016) will be a catalyst for growth.

Targeted spending toward activities and programs that

accrue to the local economy, particularly in terms of

inducing local employment, would imply additional


3636

Table 10: Sequencing of Recommended Projects/Activities for Phases I and II of the Transition Period

Theme 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


3737

concession that could improve rapid national economic

growth.

Proposed programs during the transition are projected to

reach PhP 225 billion. Around PhP 116 billion is already

covered by planned activities of various government

agencies for the period from 2014 to 2016. The financing

gap of PhP 109 billion corresponds to proposed projects

that are not included in programmed budget of the

government for 2014 to 2016. This allotment of funds for

various programs will have significant impact on economic

growth.

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,

implementation arrangements are in place, and therefore

fund-releases and implementation can proceed without

delay.

Figure 8 presents the best-case (high) scenario and

alternative scenarios (low and medium) using different

levels of utilization: 19% for the low scenario and 38%

for the medium scenario. Projected growth under the

low scenario is 4.1% and 5.5% in 2015 and 2016,

respectively; and under the medium scenario is 6.5% to

8.7%.

Theme Phase I Phase II

Governance, Justice, and Security

• 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

Source: NEDA and BDP-CPT estimate

Figure 8: GRDP Growth Scenarios in Bangsamoro (2011–2016)


3838

The sources of growth during the transition will rely

heavily on government spending, which cannot be

sustained in the medium term. Instead, the gains from

improved agriculture practices, infrastructure, and

public service should prompt the private sector to

participate more vigorously in the regional economy.

Building a “just economy” in the Bangsamoro through

the targeted interventions identified in this plan will

deliver the necessary conditions for the Bangsamoro to

move to a higher growth path similar to that observed

in Mindanao and the rest of the country in recent years.

An average annual growth rate of 6% to 8% in 2017

to 2022 would help significantly in lifting communities

out of poverty. Sustained economic growth could

reduce poverty incidence to 40% to 42% in 2022 from

Source: NEDA and BDP-CPT estimate, using data from DepEd-ARMM (EBEIS) and PSA-LFS (2013), CPH (2010), and NDHS (2013)

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%

Inactive youth (between 15 and 25 years old, not in school or labor force)

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%

Population with health insurance coverage

63.0% (2013) 44.2% (2013)

50 to 55% 60 to 70%

Households with access to electricity

88.8% (2012)

58.1% (FIES 2012)

60 to 65% 70 to 75%

55.8% in 2012. This would translate to 300,000 people

rising from poverty.

High priority placed on wide delivery of basic social

services is expected to improve people’s capabilities and

household welfare. An examination of the post-conflict

situation reveals that the most important development

constraint specific to the region is the level of its human

resources and human capital. This is borne out, among

others, by the extraordinarily low levels of education and

health and other human-development indicators.

Table 11 presents the targeted improvements on selected

human development indicators by the end of the transition

and the medium term.

C H A P T E R 7Economy and Livelihood

39

7Economy and Livelihood


40

The protracted conflict in the Bangsamoro, combined

with its accumulated neglect and its geographical

remoteness, has resulted in a vicious cycle of

insecurity, poverty, marginalization and deprivation,

and underdevelopment (see Chapter 4). This chapter

discusses the state of the economy and livelihood

opportunities in the Bangsamoro, using data from the

ARMM as proxy. It proposes a strategic approach to

development in the Bangsamoro based on leveraging

its agricultural potential to spur investment and move

production up the value-chain. Section 1 assesses

the performance of the Bangsamoro economy across

its sectoral composition and describes the impact on

labor force participation, poverty incidence, and food

insecurity. Section 2 provides a strategic framework for

improving economic performance and developing

livelihood opportunities for sustainable growth in the

Bangsamoro. Section 3 outlines a program for economy

and livelihood in the transition.

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

3.1% (1996–2008) and 2.5% (2009–2012)49 and a

population growing annually at approximately 2.3%

(2010), the regional economy can barely keep up with

the expanding needs of its residents. As a result, the

ARMM had the lowest regional per capita output in the

Philippines in 2013—PhP 29,608 per person, barely a

quarter of the national average and lower in real terms

than per capita output in 2010.

Less evident in the official data is an active and far-

reaching informal economy, which provides meager

but critical livelihood and employment opportunities to

marginalized and vulnerable communities operating in a

highly imperfect and disconnected market. Data suggest

that close to 60% of workers in Mindanao are involved

in the informal sector, with the share in the ARMM

being considerably higher. This informal economy is an

essential survival tool for poor communities, although

it also includes a “shadow economy” that operates

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.

Economy and Livelihood7


41

A.2. Composition of the ARMM Economy

AFF contributed nearly two-thirds of GRDP (63.5%) in

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 low-

value 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.

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

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

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

can offer.

Figure 9: Sectoral Composition of ARMM GRDP: Four-Year Average (2009–2012)

Figure 10: Agriculture, Fishery and Forestry Sector Growth (1996–2012)

Source: PSA-Regional Income Accounts

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

Figure 11: Nominal Value of Production of Top 10 Major Crops in the ARMM: Five-Year Average (2008–2012)

Source: DA-BAS


42

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.”

Very few medium- and large-scale enterprises that

generate a significant number of jobs have been

successful and rely heavily on localized security

agreements. 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.

A.3. Finance and Credit

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.

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

Source: DA-BAS

Table 12: Average Annual Production of Key Crops in ‘000 mt (2010–2013)

Rice Corn Coconut Coffee Cassava Banana Mango Sugarcane Rubber Abaca

Philippines 17,232.1 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%


43

the poor being trapped in low-productivity, low-income

jobs. Labor force participation in the ARMM is only

56.0% (2013), which translates to one million working-

age residents outside the labor force. Over a quarter of

employed individuals are unpaid—typically working for

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

Source: DTI (2012) and BSP (2014)

Map 3: Number of Establishments by Municipality (2012) and Municipalities Served by Banks (2013)


44

Women and youth make up a disproportionate share of

the potential but inactive workforce. Women account

for 75% of the population outside the labor force. Even

allowing for women’s typically low participation in

the labor force due to housework and childcare, the

participation rate in the ARMM is only 32%, compared

with the national and Mindanao averages of 50% and

51%, respectively.

The same factors explain the low unemployment rates

among the youth. Youth labor force participation is only

35.1% and almost a quarter of those aged between 15 to

24 are neither in school nor in the workforce (see Table

14). Lacking the skills to productively participate in the

labor market, the out-of-school youth are at high risk of

poverty and disaffection, which potentially can lead them

to violence and undermine social cohesion.54

A.5. Poverty Incidence

As a result of limited employment opportunities, low

investment, and lagging growth, the ARMM has the

highest incidence of poverty in the Philippines, more

than twice the national average (see Figure 14). Three of

the ARMM provinces are among the 20 poorest provinces

in the country, with Lanao del Sur registering the highest

poverty incidence at 73.8 in 2012.55

Poverty is also closely linked to displacement, which is

one of the defining characteristics of conflict in Mindanao.

Even minor spikes in violence can lead to large-scale

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%

Charities/NGOs - - - - -

Local lenders/pawnshops 1% 1% 13% 23% -

Banks - 1% 9% - -

Cooperatives 1% 1% 15% - -

Local Government Units (LGUs)

- - 2% - 1%

Stores 5% 14% 12% - -

Others 2% 2% 2% 11% 2%

Source: WFP and WB (2011)

Table 14: Youth Unemployment and Labor Force Participation (2013)

AgeUnemployment Rate 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)


45

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)

population displacement. Between 2000 to 2012, over

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

still displaced, since lengthy displacement results in the loss

of one or more harvests, absence from school, and in some

cases, forced sale of capital assets in order to meet basic

needs. Displacement thus drives the transmission of poverty

across generations.

Poverty and low agricultural productivity contribute to

food insecurity and malnutrition. An assessment of food

security in the five provinces of ARMM57 showed that

900,000 households, or 46% of the total, had a poor or

Figure 14: Poverty Incidence in ARMM (2006–2012)

Source: PSA (using FIES data)


46

borderline consumption score (i.e., 20% poor and 40%

borderline consumption). Lanao del Norte, Lanao del

Sur, and Maguindanao are particularly badly affected

by food insecurity, with IDPs being the worst affected,

followed by returned and resettled populations.

B. Strategic Goals

B.1. Jumpstarting the Economy

Addressing low-productivity employment, low labor

participation, and unemployment and underemployment

rates among the youth and women in the 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.

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

economy to reach higher and sustained levels of growth.

To attain this goal, the BDP recommends implementation

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

Bangsamoro youth.

Training programs on food processing, cottage industry

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.

Meanwhile, there is significant human and financial

capacity vested in individuals residing outside the

Bangsamoro, both in the Philippines and abroad. Offering

incentives for increased banking and investment in the

Bangsamoro, including the transmission of remittances,

could provide a multiplier effect on the investments

of the Bangsamoro Government and development

partners. Encouraging young Moro professionals, through

scholarships and training packages linked to technical

posts, could fill the immediate capacity requirements

to manage the transition to a growing and prospering

Bangsamoro.

B.2. Unlocking Growth Potentials

B.2.1. Promoting Agricultural Development

The large share that AFF contributes to the regional output

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

will have an immediate impact across the Bangsamoro,

particularly in poor areas, as this will increase food

security and provide employment opportunities. In the

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

landholders and marginal fishers.”58

The BBL further states that the Bangsamoro Government

“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


47

In line with this, the BDP proposes four complementary

strategic growth paths:

a. Harness the potential of small farmers,

agricultural workers and fishers by increasing

their productivity to attain higher income and

ensure food security.

b. Promote private sector-led growth through

enhancement of agricultural value-chains,

with particular focus on linking small farmers

and fishers to food processing and commercial

development for export in the medium term.

c. Promote the growth of the halal food industry.

d. Foster sustainable integrated area development

planning.

B.2.1.1. Harness the Potential of Small Farmers, Agricultural Workers, and Fishers

The vast majority of workers in the Bangsamoro are

small farmers, agricultural workers, and fishers. To attain

food security,60 raise incomes, and meet domestic and

regional demand, the BDP envisions to:

a. Increase the productivity of small farmers,

agricultural workers, and fishers;

b. Facilitate growth in value of production by

cultivating crops with higher value-added,

developing new products, and developing linkages

to processing facilities; and

c. Increase the sector’s resilience to risks, including

climate change risks.

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


48

Given that the region is a net importer of food, raising

farm productivity will serve as one of the key thrusts of

the Bangsamoro Government to increase income and

attain food security61 among its constituents. Increasing

farm productivity to bolster the food supply will be an

immediate first step to ensuring better access of the poor to

food at affordable prices. Food security may be achieved

in the short term by complementing current production

output with supply from outside sources. On the other

hand, food self-sufficiency can be a medium- term goal

with increased agricultural productivity and better food

logistics. Higher incomes for farmers will be achieved

through diversification into crops and activities with higher

value-added.

Combined with appropriate information and education

campaigns, this general thrust for productivity can improve

the nutritional status especially of children, the youth, and

mothers. This can be achieved through (a) agricultural

extension services aimed at improving nutrition and

education of the public; (b) adopting sustainable

agricultural practices; (c) facilitating access to appropriate

technology, production inputs and market information; (d)

improved market access through farm-to-market roads and

transport; (d) small-scale harvesting and irrigation facilities;

and (e) improved access to rural finance.

Vulnerable groups are particularly susceptible to poverty

and exclusion, and will need to be explicitly targeted

across all areas of intervention. Scholarship programs

would encourage the youth to return or to stay in school.

Livelihood opportunities in infrastructure development

and maintenance activities could also be reserved for the

out-of-school youth.

To provide longer-term employment opportunities

for youth, skills-training programs that correspond to

industrial labor requirements would be beneficial, as

would agricultural training and provision of inputs.

Women, whose labor force participation may be

constrained by household requirements, could contribute

to household income through food processing, cottage

industries, or operating trading stands in the home. The

BDP gives importance to training and seed funding that

encourage women and post-school-age youth to join the

labor force within the sector development programs.

Increasing value of production by diversifying crops

with higher commercial value, developing new products

from agricultural commodities, and developing linkages

to processing plants and markets can be facilitated

by building a better understanding of the value-chain

approach to agro-industrial development among the

government agencies, the private sector, and farming

communities. Small farmers and fishers shall be enabled

and encouraged to consolidate their production to

facilitate profitable opportunities for common services

(such as cold storage, drying and other postharvest

facilities) and access to processing facilities; and

improving the business environment by simplifying labor

regulations, facilitating access to finance, and providing

suitable incentives.

Improving the sector’s resilience to risk will involve a

much better understanding of the factors impinging on

farmer risks, particularly factors related to climate change,

and the design and deployment of appropriate farm

finance, insurance products, and better crop selection.

B.2.1.2. Private Sector-Led Growth: Developing Value- Chain and Commercial Production of Crops

To promote further private sector investment, restoring

law and order is of paramount importance. In addition,

for agricultural ventures, addressing the widespread land

tenure problems in the region is vital if land access to

potential investors is to be guaranteed. Other elements

that will encourage greater private sector investments

in the Bangsamoro are reliable infrastructure; access

to finance, including Islamic finance; improving local

governance; and better-trained workers.62

Land and property rights require special and urgent

attention. For smallholder farmers, increased land tenure

security can enhance productivity, as it encourages them

to invest in their land, and also enables them to access

financial and property markets. For large-scale investors,


49

being able to consolidate land resources, through

contract growing or leasehold agreements, and security

of tenure over the long-term, are essential to investment

viability.

Providing these conditions could generate employment

opportunities for thousands of landless agricultural

workers. The present uncertainty of ownership and

overlapping ownerships are a significant obstacle to

development and must be addressed. The BBL provides

that land management is a concurrent power between

the Bangsamoro Government and Central Government,

the exercise of which will require coordinated long-term

engagement to clarify.

Also, the BBL stipulates that the Bangsamoro

Government shall institute processes for improved

land management. This will be possible with adequate

information on the current situation. In the immediate

term, the BDP will support surveying of existing land

titles and claims and an assessment of the existing land

management institutions. In the medium term, priority

shall be given to the formulation and passage of a

Bangsamoro Land Use Act.

Promoting the development of value-chains will result

in the creation of new products and encourage the

development of a food processing industry. This will

generate more jobs and provide the impetus for the

growth of the manufacturing sector. The latter will be

based initially on food processing but eventually can

proceed to light industrial products as the supply of

trained workers increases.63

B.2.1.3. Promote a Robust Halal Food Industry

Successful development of the halal food industry hinges

on implementation of a strategy along the lines proposed

for the development of the Bangsamoro agriculture

sector. The strategy for the halal food industry is an

integral part of that strategy.

Development of the halal food industry could be a

flagship economic program. This industry provides

a rallying point for mobilizing resources for investment,

infrastructure support, capacity-building, and introduction

of better technologies for improved and efficient

agricultural practices. Its impact would cascade all the

way down to the community level, involving micro-,

small-, or medium-scale farming, as well as processing

activities associated with food crops, livestock and poultry,

aquaculture/mariculture, fruits, and vegetables.

Targeting both issues of low farm productivity and low

value of farm produce, the development of the halal

food industry could ride on the opportunities offered by

the burgeoning global halal economy, the comparative

advantage of halal agriculture and food in the Philippines

and in the ASEAN region, and the benefits of a cohesive

and integrated value-chain. Since the emphasis is on

improving the value-chain and linking the farmers to the

halal food industry, the benefits of interventions are most

felt in increasing the value of farm produce.

Apart from linking the farmers to the halal food processors

and markets, appropriate technologies and knowhow

would be the main intervention in increasing farm yields.

Furthermore, by improving technologies and the value

of the farm produce, farms (and farmers) become more

resilient to price and financial risks.

At the heart of this strategy is intensive promotion and

development of halal organic farming as a sustainable

source of food that is compliant with the Islamic dietary

code. Organic farming is a fast-emerging sector in

agriculture, with a niche market of its own in the Philippines

and in nearby regional and other international markets. The

strategy for the halal food industry is, therefore, an entry

point in resuscitating an ailing agriculture sector, with halal

organic farming at its core.Over and above the steps to

be taken to revitalize the agriculture sector in general, the

thrust of the actions to get the halal food industry up and

running would include the following:

a. Enacting and strengthening of policies and

regulatory laws on halal accreditation and

certification, labeling, and food safety;


50

b. Designing and implementing an incentives

code for halal-compliant ventures, particularly

for smallholders and small- and medium-scale

enterprises;

c. Strengthening the institutions responsible for the

promotion and development of the halal industry,

with particular emphasis on extension and support

services to smallholders and small-scale enterprises

engaged in halal food production;

d. Developing and implementing a capacity-building

program for extension service providers, trainers,

and smallholders, and encouraging state universities

and colleges to engage in research and introduce

new courses to develop the halal industry; and

e. Developing and implementing a sustained

information and communication program on halal

food.

More detailed actions will be articulated in a revised and

enhanced Regional Halal Food Industry Development

Master Plan. This endeavor will require substantial

financial resources but identification and validation of

production zones as embodied in the Halal Industry

Development Framework could catalyze an industry

buildup in which infrastructure support, financial

resources, capacity-building, and technical support,

would be focused for better utilization.

The Bangsamoro Government could encourage the

private sector to take the lead in such an endeavor by

providing the enabling environment and appropriate

incentives and other support programs. In some

instances, however, public-private sector partnerships

may be the most appropriate route.

B.2.1.4. Fostering Sustainable Integrated Area Development Planning

Sustainable integrated area development planning

recognizes that some areas are environmentally fragile

or have special characteristics that require a significant

degree of government intervention, or may require the

close consideration of cultural and social dimensions

of development. These can involve physically or culturally

sensitive areas, including locations where security issues

would preclude private sector interest, at least in the short

term, due to the level of risk involved.

Aside from attention given to productive activities,

plans for areas under this approach will be “complete

plans” incorporating physical and social infrastructure.

It is important for these interventions to serve as signals of

intent of the Bangsamoro Government to ensure inclusive,

spatially sensitive, and sustainable development to targeted

underdeveloped communities.

Determining locations and appropriate types of interventions

across the Bangsamoro will require significant study and

assessment. In environmentally sensitive river basins where

integrated planning focuses on watershed protection, a

significantly different approach to securing water catchments

and ensuring sustainable forest management will be needed

from that to be applied in former MILF camps, which could

be redeveloped into integrated agribusiness hubs in peaceful

and productive communities.

Regardless of the type of intervention, integrated area

development programs can be significant sources of

employment for displaced populations, returnees, and

demobilized forces, with the added benefit of helping foster

social cohesion.

The specific approach of the Bangsamoro—such as location

selection criteria, private sector involvement, and transition

plans—will have to be studied carefully to ensure both the

sustainability of investments and the maximization of social

and economic benefits. The BDP recommends conducting

a study on promoting climate-resilient agriculture through

integrated area development planning, and a study on

transforming MILF camps into agribusiness centers.

While other locations will require further assessment,

Polloc Port is being considered in this Plan as a potential

manufacturing and trade hub that will later distribute other

supportive industries in other areas of the Bangsamoro. It is


51

located in a cove perfect for large vessels to berth and to

load and unload cargo. Its location and size is perfect as

a Regional Export Processing Zone. The BDP will support

necessary assessments that will lead to the attainment of

this goal for Polloc Port.

B.2.2. Promoting the Development of the Manufacturing Sector

Given the low labor-force participation 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

be found in and around the region’s major ports. First,

Polloc Port is ideal as a Regional Export Processing Zone.

Second, the Bangsamoro Government will have authority

under the BBL to pass measures that will facilitate the entry

of private sector investors, ranging from giving appropriate

land rights and access arrangements to offering incentives

to potential investors. Third, the export processing zone

could be expanded to other viable areas, such as the

Bongao Port in Tawi-Tawi where active trading is already

taking place with neighboring Sabah Island.

A comprehensive study needs to be conducted during

the transition period on how to develop Polloc Port and

other ports declared as export processing zones to become

the growth hubs for the manufacturing industry in the

Bangsamoro, including the appropriate policy environment

that would need to be adopted. As with export processing

zones elsewhere, it is critical that an open trading policy

be adopted in these zones to ensure their success.

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

resource development.

The BDP supports the development of geological

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.

B.2.4. Developing a Tourism Industry in the Bangsamoro

The Bangsamoro has some of the most diverse and

unique natural resources in the Philippines and a rich

cultural history that can yield significant revenues from

tourism. The impediments to large-scale development

of the tourism potential have been the security situation

and poor infrastructure and connectivity. There are also

environmental and cultural conservation concerns (see

Chapters 10 and 11).


52

However, the political and social stability resulting from the

peace agreement makes it opportune for the Bangsamoro

to lay the groundwork for private-sector development of

the tourism industry. Areas of particular natural or cultural

significance, such as Central Mindanao and Tawi-Tawi,

could be targeted with specific normalization interventions

regarding security and governance to encourage

investments.

Conservation and sustainability measures will need to

be prioritized alongside the improvement of security

conditions. Supportive access infrastructure, improved

tourism facilities, competitive prices for tourism amenities

and food, and capacity-building of key actors (from

managers to staff) are important requisites for developing the

sector.

To realize the potential of tourism for significant

employment creation, training programs in tourism industry

skills could be instituted, with particular focus on women

and the out-of-school youth. Demobilized MILF forces

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

At this stage, both conventional and Islamic banking

and finance facilities will inevitably have to coexist in

the Bangsamoro. An orderly development of both the

conventional and Islamic systems, leading to a better spread

of financial risks over the economy, would include:

a. Promoting healthy competition, resulting in increased

market discipline and improved customer service and

value;

b. Increasing the deposit base, as products like tabun hajj

(a savings account for the annual pilgrimage to Mecca)

are introduced; and

c. Enabling Muslims and non-Muslims alike to choose

the financial tools that are most appropriate for their

needs.

All facets of the conventional banking system will have

a role to play in the future Bangsamoro. With peace and

order and an improved business and investment climate,

development banks, commercial banks, and rural banks

will step forward to provide financial support, among

others, to enterprises in the informal sector that wish to

move into the formal sector to take advantage of the new

economic environment. Islamic banking and finance

should be viewed as a system, and thus it is critical that

the foundations be set for developing institutions and

products across all these aspects of the sector, including

banking, capital markets, microfinance, and insurance.

This must further be viewed from the national as well as

from the Bangsamoro perspective, recognizing the legal

mandate of the Bangko Sentral ng Pilipinas (BSP) and

other Central Government instrumentalities, and taking

into consideration the wider national market for Islamic

financial products. The banking system’s development

should not be rushed; it should be driven by business and

economic rationales, with market forces and the people’s

emerging needs being allowed to determine the optimal

mix of products.

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

pertinent agencies to lay the groundwork for the necessary

legislative and institutional agenda. The aim is to provide

the appropriate regulatory framework for licensing and

supervision of Islamic banking and other Islamic financial

instruments in the country, especially in the Bangsamoro.

Having the legal framework for Islamic banking and

finance at the national level would reduce the need

for legislative action by the Bangsamoro Government.

The Bangsamoro Government would need to work with

the BSP and the Financial Services Forum (FSF) on this

legislative and institutional agenda.

Various options are available to the Bangsamoro

authorities in establishing an Islamic banking presence

in the region. One is for the Bangsamoro Government

to establish its own Islamic bank, which could be a new


53

entity or a revived Al-Amanah. If this scenario is chosen, it

would be beneficial to encourage private entities to engage

also in providing Islamic banking and financial services in

the region.

Alternatively, conventional banks could be allowed to open

“Islamic windows” in their operations, or even establish

fully pledged Islamic subsidiaries. Foreign banks may also

want to enter the market, which could be through joint

ventures or technical/management agreements with local

banks that lack know-how in Islamic banking.

Some interest has been expressed by local and foreign

commercial banks to take over the Al-Amanah and use

it as springboard for introducing a wider range of Islamic

banking and finance instruments.

Another option is encouraging the establishment and

growth of Islamic capital markets, which can be achieved

if the Central Government removes discriminatory taxation

policy against Islamic financial instruments.

Islamic capital markets probably offer the fastest route for

introducing Islamic banking and financial products into

the Bangsamoro. The Bangsamoro Government and local

government units could consider meeting their “borrowing”

needs through the sukuk,64 as the drive toward financial

integration in the ASEAN region (and Asia) is expected to

provide a platform for the local development of sukuk,

given the growing importance of these instruments in

ASEAN countries, particularly Indonesia, Malaysia and

Brunei.

Use of sukuk is suited for public-private partnerships (PPP)

and could form a significant component of the economic

development thrust in the Bangsamoro, particularly as a

means to finance infrastructure in support of critical private-

sector projects. Major private-sector projects in the region

could also be encouraged to use sukuk in financing their

operations. The financing can be organized onshore or

offshore, and can be arranged without having to establish

an institutional base in the Bangsamoro or even in the

Philippines.65

Given the dominance of informal activity in the

Bangsamoro and the difficulties associated with

collateral over property and land, Islamic microfinance

facilities could play a major role in expanding the

economic base. However, there is a need for service

providers with outreach to the rural areas where the

need for support is greatest, and a need for suitably

designed and affordable instruments tailored to the

needs of the Bangsamoro market. In the Philippines,

cooperatives and NGOs are likely to be the initial

conduits for Islamic microfinance instruments, although

rural banks may also be willing to perform that role.66

The Muhammadiyah model of Indonesia is worth

exploring for its applicability to the Bangsamoro. This

model also introduces micro-Takaful (micro-insurance) as

protection to reduce risk associated with the possibility of

losses. There is certainly a demand for insurance against

crop failure by farmers in the Bangsamoro, although the

necessary premiums may currently be beyond reach.

Underpinning Islamic banking and financial instruments

is the need to ensure that Shari’ah compliance

arrangements are in place. The BSP is exploring

this matter within the context of its legislative and

institutional review, and the Bangsamoro Government

would need to engage with the BSP on this issue. The

best course of action for the Bangsamoro and the

Philippines would need to be explored and could

involve adopting interim measures, including tapping

ASEAN expertise.

A communications strategy, based on careful

socioeconomic research, would be needed to educate

the public on the principles of Islamic banking and

finance and on the products that would be available.

This strategy would need to address all stakeholders,

Muslim and non-Muslim alike. Commercial aspects as

well as the ethical and religious underpinnings would

need to be emphasized.

A program is also recommended for developing the

necessary capacity and skills of public institutions—


54

national and regional—for overseeing the development

of Islamic banking and finance. There is a dearth of

skills relating to Islamic financial instruments in the local

banking and financial industry that needs to be addressed.

Some of it can be addressed through technical assistance

and overseas training, but local academic support would

be critical. There will also be a need to explore means to

support financially the development of suitable courses in

academic establishments.

Of immediate concern is the capacity of the national

institutions to lay the necessary legislative and

administrative groundwork for establishing an Islamic

banking and finance system, and the capacity of the

Bangsamoro authorities to oversee its “on-the-ground”

penetration. Immediate efforts would be needed to obtain

technical assistance, and to organize a core team within the

Bangsamoro to interface with the BSP and the FSF in laying

the groundwork for the legislative and institution agenda.

B.2.6. Promoting Active Participation in Regional Economic Cooperation

The Bangsamoro is one of the Philippines’ closest points

to the rest of the ASEAN region. Trade between its islands

and neighboring islands in Malaysia and Indonesia was

extensive prior to Western colonization. The establishment

of the Brunei Darussalam, Indonesia, Malaysia and the

Philippines-East ASEAN Growth Area (BIMP-EAGA)67

recognized these historical ties among the islands in the

sub-region and declared that its founding was merely

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.

Together with the BIMP-EAGA, the AEI will increase

market opportunities for goods and services produced by

member countries.

The Bangsamoro region’s limited production and export

capability may prevent it from immediately accessing the

enlarged market base provided by region-wide economic

cooperation.

However, the BIMP-EAGA presents an important

opportunity for Bangsamoro entrepreneurs to learn

the dynamics of international trade and eventually to

access the regional export market given the advantage

of physical proximity to the other ASEAN countries of

the BCT. Aside from export markets, these countries’

markets for competitively priced food and fuel and

other production inputs could induce their investors to

consider the Bangsamoro region as a viable production

location.

The Bangsamoro Government, through intergovernmental

bodies created for this purpose, would need to ensure

that it is represented in trade missions and negotiations in

the AEI and the BIMP-EAGA. It would need to encourage

the Bangsamoro private sector to participate in these

events actively, as they will lead the development of a

Bangsamoro export industry.

B.2.7. Labor Market Policies

The segmentation of the labor market between 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 low-

productivity 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


55

in the region. This means that informal arrangement is a

preferred setup by the households and enterprises to cope

with conflict risks.69

Deepening of the economy demonstrated by an influx of

local and foreign direct investments in the Bangsamoro will

not happen overnight. It is expected that the excess labor

supply in the Bangsamoro will not be absorbed immediately

into the formal sector—except for those who will be

running the new regional government administration.

It will gain its momentum once the Bangsamoro

consolidates its economy over the medium and the long

term.

Hence, the labor market policies that the Bangsamoro

shall adopt will need to put a premium on increasing

productivity in the region through attraction of labor-

intensive investments and sustained investments in

education and trainings on specific skill sets. This should

be complemented by other active labor market assistance

such as job facilitation services by the Department of

Labor and Employment (DOLE)70 or the Bangsamoro

labor ministry, and it can even start much earlier among

students through guidance counseling services at schools.

At the same time, labor policies must avoid excessive

job protection that can otherwise impede job creation or

promote further informality with adverse consequences

on overall productivity and economic performance.

Labor policies should be flexible and less restrictive.

Employment protection programs must reflect local

conditions in setting welfare standards. At the very

least, ensuring safe working environment, protection of

child labor, and non-voluntary social assistance (e.g.,

Conditional Cash Transfer) must be instituted in the

informal sector. Along with Pag-IBIG and Social Security

System contributions, these employment protection

programs will be extended to the formal sector and

scaled up over time.

Among labor rules in the formal sector that stand

out to have adversely affected domestic and foreign

companies in the country—and this will hold true in the

Bangsamoro—are the non-consultative determination

of minimum wage, lack of freedom in the application

of fixed term contracts (e.g., six-month minimum

requirement for regularization of new employees), and

restrictive policies governing dismissal of workers. To

facilitate investment and job creation, there should

be preference to relying on collective bargaining

mechanisms in minimum wage setting to reflect the

local market conditions and to give companies greater

flexibility in hiring workers.71


56

Table 15: Priority Economy and Livelihood Programs

Objectives Priority Programs Components

Increasing farm productivity and income

Assisting in ensuring food security particularly to vulnerable groups

Increasing halal-certified producers and service providers

Bangsamoro Sustainable Agriculture Program

• 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

Higher labor force participation (especially for inactive youth)

Higher household income

Bridging the labor supply gap

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

Support for long-term fiscal autonomy and development (for medium- to long-term measurement)

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

C. Summary of Priority Programs


57

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).

NOTES


58

C H A P T E R 8Infrastructure

59

8Infrastructure


60

Infrastructure72 is indispensable to promoting sustained

growth and development and encouraging social

cohesion. It facilitates travel and trade by reducing

transaction costs and creating markets. It facilitates the

mobility of people in search of better lives and economic

reward, and it provides better access to social services.

However, chronic insecurity—combined with rent-

seeking 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

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

Philippines where agglomeration has spawned rapid

growth. At present, many existing national, provincial,

municipal, and barangay roads in the ARMM are

dilapidated. The ARMM and the surrounding conflict-

Infrastructure8Figure 15: National Road Density (2012)

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, DPWH-ARMM data)

Figure 16: Ratio of Paved National Roads (2012)


61

affected provinces have a road density of only 0.028

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-to-

market 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

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,

addressing the main bottlenecks of connectivity, including

the poor condition of FMRs and the incomplete and

unpaved national roads and main arterial roads. Ongoing

projects included in the General Appropriations Act (GAA)

could be completed during the transition period.

A.2. Irrigation

Irrigation, which allows several harvests per season, is vital

to increasing farmer productivity, particularly in the rice

subsector. The ARMM has the lowest irrigated area relative

to potentially irrigable land, at only 25.8% (see Figure 18).

It should be noted, however, that irrigation requirements

differ among crops. Rice requires a relatively abundant

supply of water, while corn, cassava, coconut, and banana,

which are the main crops in the Bangsamoro, require less

water. Different irrigation systems and facilities need to be

developed according to the requirements of the locality

and the type of crops. The needs of a growing population

for potable water and the needs of farms for water to

increase their productivity will need to be balanced.

Construction of irrigation facilities will also have to

consider adaptability to climate change.

The priority needs for the irrigation subsector in BCT

include: (a) development and construction of national

and communal irrigation systems and (b) development of

LGU capacities to assist in maintaining irrigation canals

and communal irrigation systems.

A.3. Airports and Seaports

Three principal airports (Awang, Sanga-Sanga, and Jolo)

and three community airports (Malabang, Cagayan

Source: JICA-Philkoei International, Inc. (using DAR-ARMM and the World Bank’s 2005 Joint Needs Assessment of Conflict Areas in Mindanao report)

Figure 17: Ratio of Paved Farm-to-Market Roads in ARMM (2005)

Figure 18: Ratio of Irrigated to Estimated Irrigable Area (2000–2012)

Source: DA-BAS


62

de Sulu, and Wao) serve the BCT (see Map 6). The

Bangsamoro has no international airport. The principal

airports in nearby regions (i.e., Laguindingan in Cagayan

de Oro, General Santos, and Zamboanga City) serve as

important entry points to the BCT. There are four base

ports (Jolo, Bongao, Lamitan, and Malabang), 11 sub-ports,

and five private ports managed by the ARMM’s Regional

Ports and Management Authority. The Regional Economic

Zone Authority manages Polloc Port, a key facility for

regional economic development. The Philippine Ports

Authority manages Isabela Port in Basilan.

Despite intermittent improvements and rehabilitation

efforts, key facilities (Awang Airport and Polloc and

Bongao Ports) require comprehensive upgrading to

international standards, as these will be needed to

promote trade in the BIMP-EAGA sub-region and

ASEAN region and to release the economic potential of the

Bangsamoro.

The priority needs of airports in the BCT include new

passenger terminal facilities, security equipment, baggage-

handling equipment, parking facilities, firefighting equipment,

navigation facilities, and widening and lengthening of

runways and aprons. In seaports, the priority concerns are

the underutilization of Polloc Port and the need to improve

or rehabilitate port facilities. Institutional and capacity

weaknesses are likewise serious concerns, as evidenced by

unclear delineation of responsibility, poor maintenance, and

inadequate allocation of funds for maintenance.

A.4. Power Sector

The challenges in power generation and supply in the island

provinces of Bangsamoro are different in character from

Source: DPWH (2014)

Map 6: Major Airports and Seaports in Mindanao (2014)


63

those in the mainland provinces of Mindanao. The five

electric cooperatives in Basilan, Sulu, and Tawi-Tawi have

small loads,74 high supply-chain costs, and a dispersed

customer base. They lack large industrial or commercial

loads.

On the main island, the two electric cooperatives (ECs)

(i.e., LASURECO in Lanao del Sur and MAGELCO in

Maguindanao) are connected to the main Mindanao grid

and, therefore, benefit from the much lower cost of bulk

power (see Table 16). However, these networks have

been starved of investment, and although there are some

industrial or commercial loads, the two ECs suffer from

frequent power shortages in the Mindanao grid as a whole.

As a result, though coverage at the municipal and barangay

levels is nearly universal across the Bangsamoro, the

household electrification rate is only 34% as compared

with the national rate of 74%; illegal connections are

pervasive; and service fee collections are poor.

For mainland Mindanao, the priority gaps/needs in the

power subsector include: (a) a more reliable electricity

supply; (b) increased collection efficiencies of ECs; (c)

viable solutions to the problem of illegal connections;

and (d) improving the capacity of ECs to forge innovative

arrangements that will encourage power generation

while raising collection fees. In Basilan, Sulu, and Tawi-

Tawi, the top priority involves availability and reliability

of electricity supply, and the promotion of a culture of

payment for service among consumers.

A.5. Flood Control

Flooding in low-lying areas of the BCT, particularly in

Maguindanao, is a continuing concern. The problem is

perennial in river systems of the Mindanao River Basin

(MRB)—such as the Rio Grande de Mindanao, Ambal-

Simuay River, Kabulnan River, and Libungan-Alamada

River—and wetlands, such as Ligawasan Marsh, Ebpanan

Marsh and Libungan Marsh. During the rainy season

or periods of high precipitation in the upper reaches

of the MRB, excess run-off water flows toward the sea,

passing near Cotabato City, causing flooding there and

in surrounding areas. The most flood-prone areas in the

BCT are Cotabato City in Maguindanao; Sultan Kudarat

(Nuling) and Parang in Maguindanao; Munai in Lanao

Source: NEA (2013)

Table 16: Status of Electrification in ARMM (2013)

ARMM Status of Electrification

Municipalities/Cities Barangays Connections

Coverage Energized

% Potential Energized completed

% Unenergized Potential Energized completed

%

Tawi-Tawi Electric Cooperative, Inc. 9 100 186 186 100 0 47,000 12,137 26

Siasi Electric Cooperative, Inc. 2 100 66 66 100 0 13,000 3,604 28

Sulu Electric Cooperative, Inc. 16 100 330 330 100 0 85,000 24,218 28

Basilan Electric Cooperative, Inc. 14 100 269 269 100 0 75,000 38,818 52

Cagayan de Sulu Electric Cooperative, Inc.

2 100 17 17 100 0 5,000 1,895 38

Lanao del Sur Electric Cooperative, Inc.

41 100 1,175 1,175 100 0 138,000 56,357 41

Maguindanao Electric Cooperative, Inc.

30 100 404 398 99 0 116,000 26,303 23

Total 114 100 2,447 2,441 99 0 479,000 163,332 34


64

del Norte; Balo-i Kapatagan, Bubong, Ditsaan-Ramain,

Taraka, Tamparan, Lumbayanague, and Masiu in Lanao

del Sur; Pikit in North Cotabato; Jolo in Sulu; and Isabela

City in Basilan.

Some BCT areas are also prone to other types of disasters,

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 earthquake-

induced shallow landslide. BCT areas that are vulnerable

to tsunamis include Cotabato City, Parang, Maguindanao,

the coastal towns of Lanao del Sur, Maguindanao, Sultan

Kudarat, Basilan, Sulu and Tawi-Tawi, and Isabela City in

Basilan. Further discussion of disaster vulnerability in the

Bangsamoro can be found in Chapter 10.

The pressing need to mitigate flooding in the BCT

calls for the following measures: (a) preventing rapid

deforestation and denudation of forest areas that help

prevent heavy siltation in river systems; (b) prohibiting

conversion of primary forests/forestlands into croplands

and settlement areas; and (c) strict implementation of

laws and policies relating to land use and garbage/waste

disposal.

A.6. Telecommunications

Mobile phones in the Philippines numbered just over

100 million as of the end of 2012, according to data from

local telecommunications companies. Internet access in

the country was limited to 33% of the population as of

end September 2011, compared with the Southeast Asia

regional average of 38%.

In 2010, according to the latest available data, 74% of

all ARMM had access to cellular phone signal, and 4%

had access to landline telephone systems.75 From the

transition period to the long term, the need for modern

telecommunications infrastructure will include the

full range of development purposes, from promoting

economic activity to building social cohesion. Attracting

massive commercial interest in this sector would have

to begin by ensuring the security of telecommunications

personnel and investments.

B. Strategic GoalsThe overall strategic goal is to develop a well-planned,

needs-based, and sustainable infrastructure network and

facilities that support five targeted strategies, as shown in

Table 17.

B.1. Roads and Bridges

During the transition, the strategy for roads and bridges

will be to: (a) sustain current efforts to improve national

roads through rehabilitation, reconstruction, upgrading,

and maintenance; (b) address the most immediate and

most un-served needs/gaps, especially at the barangay

or community level by paving FMRs and building new

ones; and (c) develop capacity in infrastructure planning,

feasibility preparation, project supervision/management,

and monitoring and evaluation for infrastructure staff.

The river network in the BCT can be tapped as an

alternative and low-cost mode of transport, especially for

passenger and agricultural produce. Construction of river

wharves would encourage development of this mode of

transport and enhance open access to hard-to-reach areas.

Construction of FMRs would facilitiate transport of

farm produce to municipal, provincial, and national

roads leading to processing and marketing centers. A

Bangsamoro road master plan will be formulated—with

emphasis on the connectivity within the hierarchy of road

networks, identifying the priorities for new construction,

rehabilitation, and regular maintenance work—and will

have a dedicated plan for FMRs.

In the short term, FMRs for which regular funding from

the ARG and national government is available should

be constructed without delay. Feasibility studies should

be undertaken for those given priority by Bangsamoro

communities in the CVEs so they can be included in the

priority projects for the Special Development Fund (SDF).


65

During the transition period, national road projects will

be implemented by the Department of Public Works and

Highways (DPWH), while provincial and municipal road

projects will be done by the DPWH-ARMM (see Map 7).

Barangay road and FMR projects shall be implemented

by the Department of Agriculture (DA), Department of

Agriculture and Fisheries (DAF)-ARMM, Department of

Agrarian Reform (DAR), and DAR-ARMM.

The passage of the BBL, the successful conduct of a

plebiscite, and the creation of the BTA in 2016 are

envisioned to usher in a seamless transfer of functions and

turnover of national, local, and barangay/FMR projects

that are still ongoing, under terms and conditions spelled

out.

To prepare for this event, teams of qualified Bangsamoro

personnel could be created and the team members

subsequently be appointed to leadership positions in

planning, project implementation and supervision, and

monitoring of road and bridge projects particularly for

local roads and barangay/FMRs.

B.2. Irrigation

The development strategy for irrigation in the Bangsamoro

is to provide the funding needed to rehabilitate, improve,

and maintain existing systems and construct new ones.

In the case of communal irrigation systems (CIS),

the responsibility for improving, rehabilitating, and

maintaining existing systems and developing new

systems had been devolved to LGUs under the Local

Government Code (LGC) of 1991. As the limited

financial resources of LGUs have placed irrigation at

a low spending priority, the Bangsamoro Government

would be in the best position to intervene in this respect

during the medium-term.

In the short term, a Bangsamoro Irrigation Master Plan

will be needed, taking into consideration the different

irrigation needs of various agricultural crops and the

areas where they are planted. While current irrigation

efforts of the national government is biased toward rice

production, these will not properly respond to the crop

mix found in the Bangsamoro, given the predominance

of other crops (i.e., cassava, corn and coconut) grown in

the area.

Also, if growing of more high-value crops (i.e., banana,

palm oil, coffee, cacao, pineapple, and rubber) is to

be promoted, these will require different irrigation

systems. These requirements will have to be inputted in

the Irrigation Master Plan. Climate change adaptability

measures in the construction of irrigation facilities should

also be factored into the master plan.

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


66

B.3. Airports and Seaports

For airports and seaports in the BCT, the development

strategy is to continue and expedite efforts to raise their

service levels through rehabilitation, improvement, new

construction, and maintenance. Preliminary engineering

and feasibility studies would need to be undertaken

during the transition period to determine the viability of

establishing an international airport in the BCT and of

building more airports to form part of a viable multi-modal

transport system in the region. Free and unhampered

movement of people and goods through airports and

seaports connected to an efficient land transport system

and good roads would be an important way of speeding

up development of the BCT, especially considering

the economic potential of domestic and international

tourism. It is noted that safety and security challenges may

continue and severely impact travel in the region.

B.4. Power Sector

For the power subsector, the strategy calls for: (a)

monitoring by the Bangsamoro leadership of the Central

Government’s and the private sector’s development

efforts in the Mindanao grid, and (b) formulation and

implementation of programs and projects to develop

renewable energy, particularly for off-grid areas.

The Bangsamoro leadership will need to identify

mechanisms through which institutional and technical

arrangements on power generation, transmission, and

distribution may be best coordinated with the Central

Government, as the Bangsamoro Government has

exclusive powers over Lake Lanao,76 and power generated

by two hydroelectric plants in the BCT (Agus 1 and Agus

2) is delivered to the Mindanao grid. The BTA would

need to study and arrange with the National Electrification

Source: DPWH (2014) and DOTC (2010)

Map 7: Transportation Network in the Bangsamoro (2014)


67

Administration (NEA) and the Central Government how the

seven ECs operating in the BCT can be made responsible

to the BTA.

For the short term, the strategy includes raising the quality

of electricity services to realistic levels while laying the

groundwork for full improvement in the medium and the

long term, which will be crucial to the region’s sustainable

socioeconomic growth (see Map 8). This strategy includes:

(a) electrification and energy services; (b) EC support to

private sector commercial and industrial investment; and

(c) institutional strengthening of the Bangsamoro ECs.

B.4.1. Electrification and Energy Services

The strategy to increase connections has to recognize

that additional connections must be commercially viable.

Any proposed solution would need to recognize not

only the unique positions of the ECs—since they are

already providing services—but also the potential for

other players (NGOs, investors, private energy services

providers, and communities) to play important roles, in

some cases in partnership with each other and with the

ECs.

A strategy to accelerate access to modern energy in

the Bangsamoro should attempt to: (a) strengthen

the electrification function of the ECs both for grid

connections and solar home systems; (b) ensure credit

and subsidy flows to the ECs where grid rehabilitation,

extension, and intensification are necessary and viable;

(c) ensure that non-EC providers have non-discriminatory

access to subsidy funds for solar home system

solutions, such as those provided for in photovoltaic

(PV) mainstreaming; and (d) support service providers

with targeted information and educational campaigns,

particularly among households and communities on the

Source: NHTS (2009) DOE-NEA (2014)

Map 8: Barangay Access to Electricity and Electrification Projects in the Bangsamoro (2014–2015)

0 - 20.00

Percent of households withaccess to electricity


68

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

compromise hydropower availability.

The Bangsamoro also has wind resources that can be

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

c. Showcase household and community level RE

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

and financially, and households that will have new

opportunities for electrification. This approach could

also be promoted in declared export-processing zones

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


69

aspect, but also important long-term relationships with

customers of all kinds. This has not been straightforward

in the Bangsamoro, where utility company employees

have often been injured and sometimes killed by

customers, and where today, for example, some of the

secured meter installations that have been rolled out in

LASURECO have been vandalized or destroyed.

Technical assistance is being extended to MAGELCO

with respect to: (a) working with private-sector investors;

(b) executing front-end engineering design (FEED) and

detailed engineering design (DED) studies for sub-

transmission assets; (c) conducting competitive and

transparent procurement; (d) supervising contractor

installation of lines and substations; (e) working

with lenders on satisfactory security and collateral

provisions; (f) managing commercial relationships with

large customers; and (g) managing processes related

to environmental, social, and gender impacts in their

investment operations. Similar assistance should be

extended to other ECs across the Bangsamoro.

Mounting debts to the NEA and NPC seriously affect

the ECs’ financial condition, which results in further

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

to all EC consumers that “business as usual” with regard

to nonpayment of electric bills would no longer be

tolerated.

B.5. Flooding

Flooding in the BCT can be addressed by creating and

maintaining partnerships with the local communities

for watershed protection and through rehabilitation

programs. Only through such sustainable partnerships

can successful reforestation programs be implemented

on a sustainable basis. If people living in the forest

areas participate in reforestation programs and are

compensated for protecting the forestlands or for planting

trees, they will have greater motivation to protect the

forest. The needs will have to be regularly monitored to

ensure that reforestation targets are met.

The challenge is to make people living in forestlands

aware and cognizant of the dire consequences of

deforestation to those living in flood plains. Likewise, it

is a challenge to the Bangsamoro leadership to provide

people living in the forests with sources of livelihood

other than using fallen trees (which are typically

converted into charcoal).

C. Summary of Priority ProgramsTable 18 sets out priority infrastructure interventions.


70


Increase volume of passengers and goods, road density

Strengthening the Bangsamoro Infrastructure and Logistics System

• 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

Increase household access to electricity

Energy • 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

Enhance capacity of Bangsamoro communities to adapt to climate change and undertake DRRM for social justice and to mitigate displacement

CCA/DRRM-Responsive Infrastructure • Ambal-Simuay River Flood Control• Slope protection• Creating and maintaining partnerships with local communities for watershed protection and rehabilitation programs

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, full-paying 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.

NOTES

Table 18: Priority Infrastructure Programs

C H A P T E R 9Social Services

71

9Social Services


72

A. Context: Education, Health, and WaSH in the BangsamoroThe Bangsamoro registers some of the country’s worst

social indicators, particularly in the areas of education,

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

attributed partly to the lack of good governance and

livelihood opportunities, the highly inadequate provision

of social services is also a major factor in the decline in the

overall welfare of the population, which disproportionately

affects poor households vis-à-vis other households.

These significant barriers to development, compounded

by repeated cycles of violence and unfavorable

“neighborhood effects,”81 largely explain why the Human

Development Index (HDI) in the region is significantly

below the national average and has even fallen in recent

years (see Figure 19).

A.1. Education

The most telling and relevant fact regarding the state

of education in the Bangsamoro is that one in every

five adults has no schooling at all and only a small

proportion has completed high school (see Figure 21).

That this is no artifact of the region’s age-structure but

a real deficiency is confirmed by the large numbers of

functionally illiterate adults in the region.

The Bangsamoro’s net enrolment rates (SY 2012 and

2013) of 72.5% in primary school and 26.1% in

secondary school, respectively, are far below the national

averages (95.2% and 64.6%, respectively),82 despite

recent improvements. Cohort survival is also significantly

lower than the national average. In SY 2011-12, of

students who had enrolled in Grade 1, only 23.1% had

made it to Grade 6, compared with the national average

of 70.9% (see Map 9). In the secondary level, only

Social Services9Figure 19: Human Development Index in the Bangsamoro (2000–2009)

Source: Philippine Human Development Report (2005 and 2012/13)


73

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.Source: PSA-CPH (2010)

Source: PSA-LFS (2013)

Figure 21: Education Attainment, 18 Years Old and Above (2013)

Figure 19: Human Development Index in the Bangsamoro (2000–2009)


74

Figure 22: Percent of Children (12–23 Months Old) with No Vaccinations (1998–2013)

Figure 23: Percent of Children (12–23 Months Old) Who Received All Basic Vaccinations (1998–2013)

Note: 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)

45.1% of students who had enrolled for first-year high

school stayed on up to fourth year; the national average

is 74.2%. Considered altogether, only one in every 10

students who begin elementary education will finish high

school. Given the low enrolment and high dropout rates,

less than 6% of children in the ARMM will graduate high

from school.

This situation is the product of a complex of factors,

including the displacement of people owing to conflict,

ill health, lack of economic opportunities that justify

literacy and formal education, poor delivery of education

services, and cultural factors, particularly the low priority

given to achievements of women and girls. The low

educational attainment and associated high levels of

illiteracy compound the development challenges in the

Bangsamoro and further limit livelihood opportunities.

A.2. Health

Health outcomes in the ARMM are significantly worse

than in the rest of the Philippines. Maternal mortality is

67.35 per 100,000 live births in the ARMM, compared

with the national average of 64.76 per 100,000 live

births.83 Infant mortality is at 32 per 1,000 live births

in the ARMM, compared with 23.9 nationally.84

The leading causes of morbidity and mortality are

noncommunicable diseases, as elsewhere in the

country, while tuberculosis and respiratory infections

are prevalent infectious diseases. Lack of potable water

and inadequate sanitation and hygiene result in high

levels of diarrheal diseases. Malnutrition as manifested

in wasting and stunting is also a significant problem

in the Bangsamoro, with very low micronutrient

supplementation levels. Deworming activities have

reached only a limited number of beneficiaries.

Access to essential maternal health services urgently

requires improvement. The ARMM is the only region

in the country where the proportion of women that

received antenatal care, at 52.8%, is lower than the

national average of 95.4%.85 Facility-based delivery is

exceptionally low at 12.3%, and only 20.4% of all live

births are attended by a skilled health professional, such

as a doctor, nurse, or midwife. Absence of maternal

health services is a major cause of maternal mortality,

with the vacuum being filled by reliance on traditional

birthing by hilot (practitioners of traditional native

methods). The ARMM also has one of the lowest rates of

full immunization coverage at 29.4% (see Figures 22 and

23).


75

With less than half (46.7%) of households having

access to healthcare facilities (see Map 10), provision of

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

care, access to medication, and hospital services are

also insufficient, with 2,326 hospital beds in the ARMM

unable to meet the existing DOH standards. Significantly,

there are no tertiary hospitals in the region. The only

tertiary facility in the BCT is the Cotabato Regional

Medical Center (CRMC), which is outside of ARMM.

Figure 24: Government Health Workers per 100,000 Population (2011)

Map 10: Barangay Access to Health Centers and Distribution of Population by Barangay (2010)

Note: * Expressed per 10,000 populationSource: DOH-FHSIS (2011)



76

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.

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 25: Percent of Households with Health Insurance (2013) 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

2011 Philippines 20.2 33.6 7.3

ARMM 26.2 43.5 10.0

2013 Philippines 19.9 30.3 7.9

ARMM 21.9 39.0 8.5

Source: DOST–FNRI–NNS (2008, 2011, and 2013)


77

A.4. Water, Sanitation, and Hygiene (WaSH)

Despite abundant water resources, ARMM communities

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.

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.

A.5. Housing

Shelter is a basic right of every person. The 827,032

households in the region86 are unevenly distributed

within the ARMM (see Table 20). Settlements tend to

cluster along the main road network of the mainland

and along the coastline/seashore of island provinces. As

a result, most facilities and services are inaccessible to

many people living in the hinterland or islands. A big part

of the rural population is overlooked in the provision of

these facilities and services.

The Housing and Urban Development Coordinating

Council (HUDCC) recorded the total housing needs

Figure 27: Percent of Households with Access to Improved Safe Water Supply (2011)

Figure 28: Percent of Households with Access to Sanitary Toilet Facilities (2011)

Source: DOH-FHSIS (2011)

(backlog plus new households) in the region at 80,896

units in 2014.

More than 20,000 families in the Bangsamoro are informal

settlers or live in areas without consent of owners.

According to a 2011 survey of the National Housing

Authority (NHA), most of them were in Sulu. The second

and third highest numbers of informal settler families (ISF)

were in Tawi-Tawi and Basilan. Most of the houses were

built during the past 15 years. These are made of wood,

bamboo and sawali-matted bamboo strips, and makeshift

materials.87


78


Map 11: Barangay Access to Waterworks System and Distribution of Household Population by Barangay (2010)

Source: HUDCC (2014)

Table 20: Housing Needs Estimate by Housing Indicator in ARMM (2010–2017)

2010 2011 2012 2013 2014 2015 2016 2017

1. Accumulated Need

Rent-free w/o consent of owners + informal settler

21,230 21,910 22,326 22,750 23,182 23,622 24,071 24,528

Homeless 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

2. Future / Recurrent Needs

New Households 9,181 9,356 9,534 9,715 9,899 10,087 10,279

Total 71,174 73,560 74,973 76,412 77,878 79,373 80,896


79

About 10% of the ISFs will need resettlement because

they live in danger areas in Lamitan City in Basilan,

Bangungul in Sulu, and Panglima Sugala in Tawi-Tawi.

Land ownership is a major and complex problem, being

a result of a series of events spanning decades that have

influenced the internal development in the Bangsamoro.

It is also often the cause of rido.

A.6. Gender and Development

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) 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

of the fundamental right to life, liberty, security, dignity,

nondiscrimination, and physical and mental integrity. It

reinforces gender inequality and limits the participation

of women in meaningful development.

B. Strategic GoalsProviding 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

medium term. This highlights the distinctive88 policy

reforms in a post-conflict environment.

During the transition period, interventions shall be

geared toward the social services by increasing access

to quality basic services and reducing the risk of conflict

recurrence by making the peace dividends felt by

affected communities.

Programs and projects in the medium term shall be

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.

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

Providing jobs to unskilled young adults, MILF members,

and their communities would significantly influence the

pace of the Bangsamoro economy’s recovery during

the short term, and reduce the potential for renewed

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


80

During the transition period, priority will be given to

formal or skills/competency-based training through the

Balik Eskwela program and other programs for out-of-

school youth, including the Department of Education’s

Alternative Learning System (ALS), the Abot-Alam

program, technical-vocational training provided by

TESDA and accredited service providers. Job training and

apprenticeship schemes in private companies could also

support this objective.

The content of existing technical-vocational and skills

development modules will need to be reviewed to

address the unique economic and political landscape of

the post-conflict Bangsamoro and the growing concern

about the apparent mismatch between demand in the

private sector and the supply of skills. The problem is not

peculiar to the Bangsamoro; TESDA figures for the whole

country show that in 2008 and 2009, only 28.5% of

TESDA scholars were absorbed into the labor force after

graduation.

B.1.2. Intensifying Delivery of Literacy Programs in the Bangsamoro

There are 319,815 illiterate adults90 in the ARMM—by

itself a significant barrier to achieving the Millennium

Development Goals and the objective of Education for

All. Improving adult literacy, especially among mothers,

generates economic and social returns that can limit the

transmission of poverty from generation to generation.

Improving adult literacy and child literacy and helping

people better appreciate the value of education are

associated with a wide range of beneficial results, from

better nutrition to improved social trust and confidence.

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 ARMM-

BEAM (Basic Education Assistance in Mindanao),

both teachers and parents can gain functional literacy

and learn livelihood skills. This is supplemented by

early childhood development programs under which

Community Learning Centers are being built near

elementary schools in remote areas of the ARMM.

Similar initiatives that will provide platforms for skills

development to transform small business ideas into

reality among the entrepreneurial adults should be

supported in the Bangsamoro. Innovations that combine

adult literacy, entrepreneurial skills development, and

business mentorship will target the entrepreneurial and

the vulnerable adults, particularly women. Completion

of the training program would give trainees eligibility to

apply for a small loan to start a business.

A tie-up on the adult literacy program and the DSWD’s

Sustainable Livelihood Program, which provides two-

track training for micro-enterprise development and

employment, is useful. “On-air radio” adult literacy

programs have also proved useful. The Magbassa Kita

Foundation, Inc. provides a three-month literacy and

numeracy course for illiterate adults that incorporates

peaceful resolution of conflict in its lessons, under its

“Literacy for Peace and Development” (LIPAD) Project.

The Learning Livelihood for Food Security of the ARMM

Social Fund that provides community-based livelihood

and skills training for illiterate adult women can be

replicated for scaling up in the Bangsamoro.

Adult literacy programs in the Bangsamoro, especially in

the ARMM provinces, have thus far been uncoordinated

and donor-dependent. A comprehensive assessment of

existing adult literacy programs, including a review of

instructional materials in the region, will therefore be

necessary for the program to become part of the future

operational program of the Bangsamoro Government.

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


81

schools such as in camps, would be key to any initial

attempts at integrating IDPs into the mainstream national

education system.

According to the WFP-WB survey91 on IDPs in 2011, a

significant portion of IDP households with children six

to 12 years old missed attending elementary school at

least once a week (mainland: 36%; islands: 51%), mainly

because of poor health (see Table 21).

In households that have experienced prolonged or

multiple cycles of displacements and which decide

to return home, special accreditation of learning for

returnees would be indispensable. Without it, school

children may be forced to reenter the education system

at lower level because their prior learning would be

inadequate. Teachers and school administrators in camps

who have developed skills in multi-grade teaching may

also be given opportunities to engage in curriculum

development.92

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

access to basic education, both English and Arabic,

and also IP education, in all sectors. The adoption of

the K-12 program in the national education system will

likely put an additional strain on the already stretched

basic education in the Bangsamoro if the inadequacy

of school inputs is not properly addressed. There are

not enough educational facilities with functional toilets,

electricity, and drinking water. There is a prevalence of

under-qualified or unqualified teachers, and there is a

proliferation of “ghost teachers” and “ghost schools.”

Full-scale development of culture-sensitive instructional

materials, including textbooks, would not only address

the need to accommodate the cultural diversity of the

Bangsamoro in the national educational system but also

signal the start of a fundamental reform.

Years of protracted conflict in the Bangsamoro have

disrupted schooling, with plausible consequences on

the supply side: rapid increase of incomplete schools,

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%)• School is too far (19%)• Children do not want to go (15%)

• Sickness (74%)• School is too far (57%)• Cannot afford school (39%)

Source: WFP and WB (2011)


82

This is in view of the school supply gap and the

diminished stock of human capital resulting from conflict

and out-migration. Special accreditation would also be

important to facilitate ease of mobility of students across

the education ladder and curtail non-completion among

learners.

There is also an urgent need to deploy “community-

based/resident teachers” who will be recruited from the

local population based on some flexible arrangements

on competency to deliver the task assigned. Their

deployment shall be matched with salary-based

incentives to compensate for the risks and hazards that

“community-based/resident teachers” will face once

deployed in far-flung or conflict-affected areas.

The perennial problem of deficiencies in school

resources and the proliferation of IDP communities have

prompted some schools to adopt multi-grade classes.

In most places, however, many multi-grade schools are

poorly equipped to implement multi-grade education, as

they still unsuitably employ mono-grade curricula and

the teachers lack the needed preparation for effective

delivery of the pedagogy. Despite the low number of

multi-grade schools in the ARMM relative to the national

average (see Table 22), the importance of learning from

the previous experience of the Multi-Grade Program in

Philippine Education, especially in the context of conflict-

affected areas where uneven distribution of pupils in a

classroom is the norm, will be useful.

Interventions to address the needs of multi-grade schools

include adoption of a multi-grade curriculum that treats

subjects or courses as part of an integrated continuum of

discourse, school and classroom management processes

that instill the value of peer collaboration and “self-study,”

availability of in-service teacher training/preparation,

multi-grade teacher recognition, distribution of

supplementary modular instructional or learning materials

to facilitate flexible classroom organization and learning

processes, assessment based on individual learner’s pace,

as well as involvement of families and community, all for

the purpose of fostering active learning among learners.

A multi-grade class system, as an alternative delivery

mechanism, provides learners a chance to resume

schooling after dropping out for various reasons, at

any time possible, especially in a tenuous post-conflict

landscape. Multi-grade education has been practiced

since the distant past in traditional Islamic schools in the

Bangsamoro, where it is seen as a more effective pedagogy

to promote the potentials of the learner and as a force that

fosters community cooperation. In some madaris, elements

of multi-grade schooling still remain at its core of training

so that the Department of Education’s current efforts at

upgrading madaris education into the public education

system should accommodate this multi-grade system.

The Bangsamoro Parliament shall enact a Bangsamoro

Educational System that will be responsive to the needs,

aspirations of the Bangsamoro.

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%

Philippines 38,689 8.4% 31.7% 3.3%

Note: * Refers to both regular and SPED elementary schoolsSource: DepEd-ARMM-EBEIS (SY 2013 and 2014)


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B.1.5. Supporting Efforts at Improving Basic School Data Generation and Monitoring Capability of the Bangsamoro Transition Government

It will be necessary to have a full accounting of the

number and locations of schools and an assessment

of the quality of facilities and instructional materials

and programs, including the curricula of ibtidaiya

(elementary school) and thanawiya (secondary school)

in MILF communities (BCT) and catchment areas before

these are accredited to the national educational system.

This will be pursued simultaneously with the ongoing

efforts to map out the state of educational facilities and

status of teachers, principals, and students under the

incumbent regional government, in order to weed out

fictitious schools and underperforming schools and

“ghost teachers” and “ghost students.”

Over the medium term, the Bangsamoro Government

shall deepen the implementation of universal access

to basic education and create a mass of educated

reformists.

B.1.6. Building a Critical Mass of Educated Human Resources in the Bangsamoro

Building a healthy, educated, and skilled resource base

in the Bangsamoro is a key factor in accelerating long-

term economic growth, as having improved human

capital tends to engender knowledge spillover and

innovation. Toward that goal, it will be essential to

create a critical mass of educated people in the medium

term. Providing scholarships for higher education,

domestic and international, and training in executive

programs and specialized technical skills would be a

major step in institution-building.

The Bangsamoro also needs to revitalize its tertiary

education system to enhance its human capital stock

and to generate a human resource base that can adapt

and compete in whatever fields or industry they are

immersed in the Bangsamoro. There are six universities

with three satellite campuses—Mindanao State

University, Notre Dame University, and the University of

Southern Mindanao—and 93 colleges and academies.93

However, only 5.3% of its population in 2010 had college

degrees. Deliberate efforts will be needed across a wide

range of subjects, including teacher-training, public

administration, business administration, entrepreneurship

and accounting, health and social-welfare services,

community development, agricultural extension and

possibly research and development to staff the regional

government, economy and civil society. Considering the

urgent need to recruit such personnel, especially among

the local population, it will be useful to experiment with

more flexible arrangements that emphasize competency for

the tasks to be assigned.

As part of the revitalization of tertiary education system,

issues on allocative efficiency, quality, access, and

relevance are present and must be dealt with, as the region

gears toward calls for modernizing its higher education

institutions attuned to the demands and needs of the

regional and global economies.

B.1.7. Upgrading Social Services to Encourage Skilled Workers to Return

Skilled and healthy workers have a high propensity to

escape a conflict situation,94 and so there has been a

diaspora of such workers from the Bangsamoro. A solution

is to encourage them to return because they will be needed

in the region’s socioeconomic development, including the

delivery of quality basic education and health services. The

challenge is to provide them with employment, livelihood,

and business opportunities, together with quality education

and health services for them and their families.

In the medium term, the Bangsamoro Government will

invest in upgrading the education and health facilities

as well as the deployment of skilled health workers and

teachers. Private-sector sponsorships of some components

of educational facilities or services, through the “Adopt-

a-School Program,” can be a congenial arrangement to

encourage the participation of the private sector in meeting

the social objective of education for all. Similar efforts

shall be undertaken in the health sector, such as “Adopt-

a-Hospital Program” or “Adopt-a-Health-Center Program,”

especially in remote areas in the Bangsamoro.


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B.1.8. Strengthening the Madrasah Educational System, and also IP Education

The madrasah system, and also the IP educational system,

will be strengthened to encourage more Bangsamoro to

enroll and to ensure that they gain the knowledge and skills

that will enable them to be productively employed.

A review of curricula is necessary to reflect both the

educational policies of the Central Government and the

Bangsamoro Government. There shall be accreditation of

madaris and schools offering IP education, as well as training

of teachers and professionalization of asatidz (teachers)

not only in traditional fields of learning but also in English

and technical and science courses, in order to create an

environment conducive to acquiring technical and scientific

proficiency.

The Bangsamoro Government shall adopt a system of

education consistent with the culture, traditions, and

customs of the Bangsamoro. As such, it shall examine the

present curricula in order to suit the educational needs of

the Bangsamoro.

B.1.9. Scaling Up Technical and Vocational Skills Development

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

the private sector will be formed in designing/updating

vocational and technical curricula and creating internship

or apprenticeship arrangements in response to the specific

human capital needs of companies in a new politico-

economic environment. Special adult education programs

will be undertaken, focusing on areas of the Bangsamoro

with a high incidence of adult illiteracy, such as areas in the

island provinces. Similarly, programs geared at maintaining

and increasing school enrollment levels and special training

programs for out-of-school youth will be launched.

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

services is a paramount concern of the Bangsamoro in

the medium to the long term. The BDP can build on the

lessons learned from the previous experience of the ARG95

with the following essential measures to be undertaken by

the Bangsamoro Ministry of Education: (a) strengthening

social accountability through citizen engagement in

school management in collaboration with government and

NGOs to emphasize the evolving parental choice and civil

society participation in terms of school choice; (b) adopting

results/performance-based budgeting and accountability

management to foster fiscal discipline combined with

transparency of targets, budget, and performance; and

(c) ensuring integration of education budget to align

education priorities with policy or plans. The third item

will be extremely useful in encouraging a fiscal culture of

predictability of the budgeting framework.

B.2. Health

The strategic thrust of the health sector during the transition

period is to expand the implementation of universal quality

healthcare, starting in areas most disrupted by conflict and

in areas where the most vulnerable are clustered. Focusing

on these areas would have a significant impact on regional

health indicators.

B.2.1. Improving Access to Quality Healthcare Services in Camps, Key Secondary Cities, and Isolated Communities

Coordinated and implemented by a Project Task Force, the

strategy can be achieved through:

a. Health caravan for the Bangsamoro. This will be

a medical and dental outreach program consisting

of, but not limited to: consultations; minor surgical

procedures; mobile diagnostic clinics (e.g., in buses

and boats); health education and promotion of proper

nutrition; healthy lifestyle and noncommunicable

diseases prevention; oral health/hygiene promotion;

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.


85

b. Provision of equipment, devices, medicines, and

vaccines to rural health units (RHUs). This will

supplement current allocations in Bangsamoro areas

with the greatest need. Some 87,606 children (0-2

years old) in the ARMM have not received any basic

vaccination to meet the 2013 national percentage-

average.

c. PhilHealth beneficiary awareness campaign.

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

d. Distribution of sponsored PhilHealth insurance cards.

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.

e. Launching of the Bangsamoro Telehealth Project. This

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

constituents avail 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.

B.2.2. Supporting Efforts at Improving Basic Health Data Generation and Monitoring Capability

Continued efforts in mapping out the location, the

quantity and quality of health infrastructure, and status

of medical personnel will be pursued to ascertain the

true state of affairs in the delivery of quality health

services in the Bangsamoro. A comprehensive needs-

assessment of health facilities and personnel is also

necessary.

B.2.3. Conducting Analytical and/or Feasibility Study on the Bangsamoro Social Health Insurance System

An analytical and feasibility study will be conducted

on a Bangsamoro Health Takaful, a Shari’ah-compliant

social health insurance system.

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

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 externally-

sponsored residential care facilities.


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In the medium term, the Bangsamoro Government will

need to deepen the implementation of universal access to

healthcare, taking into account the cultural diversity and

sensitivity in the provision of quality healthcare.

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

This will build on the gains of the Bangsamoro “telehealth”

initiative in order to address the shortage of physicians in

hard-to-reach areas, particularly in the rural health units.

HFEP resources will be tapped for the provision of effective

telecommunications equipment. The project could be

implemented in collaboration with the National Telehealth

Center of the University of the Philippines, Manila.

B.2.8. Expansion of Social Health Insurance System

Implementation of the government-sponsored “Sajahatra

Philhealth” will need to be intensified. Efforts will be needed

to provide PhilHealth cards to all eligible beneficiaries, and

information provided on services (including at point-of-care

services), and PhilHealth focal points stationed in hospitals.

Establishment of a Shari’ah-compliant social health

insurance program provider, as an attached agency of the

Bangsamoro Ministry of Health, will be explored based on

the findings of the analytical study conducted during the

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

governance bodies in the provision of WaSH. A

governance-oriented approach to WaSH entails

systematic participation of many stakeholders in

different roles, such as communities, various levels

of local governments, regional bodies, national

agencies, CSOs, the private sector, and international

partners. The involvement of these actors and

stakeholders will have to be managed, and the

Bangsamoro Government’s capacity to do so will

have to be strengthened.

c. Standards. Provision of WaSH services in the

Bangsamoro region should be consistent with

Philippine National Standards for Water Supply


87

and Sanitation Facilities. Any water service intervention

should be at Level 2, at the minimum, to avoid the

perennial problem of the community’s inability to sustain

the operations and maintenance of a Level 1 water

system.

In addition, interventions should be compliant with the

Philippine National Standards for Drinking Water,

the standards on appropriate water and sanitation

technology, those related to domestic plumbing,

household water treatment and storage, and other criteria

and benchmarks provided by law. Not achievable

overnight, these are standards to which WaSH

stakeholders in the Bangsamoro should aspire.

d. Database. An inventory of WaSH service facilities,

implemented as early as possible during the Bangsamoro

transition, is crucial to ascertain the existing condition of

supply and sanitation, and determine actual demand.

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.

b. WaSH Development Roadmap. An overall roadmap for

WaSH in each locality will be the basis for initiatives

that build on one another progressively to achieve

the WaSH vision and targets. The roadmap has to be

based on data, technically sound, and developed in a

participatory manner. Essential to these roadmaps are

data on water demand98 and supply. Subsequent WaSH

projects will have to use the local roadmap as reference

and will be supportive of the set directions and targets.

The Bangsamoro Government will need to develop a

regional framework or roadmap to provide strategic

guidance, targets, and support to the local units with

respect to WaSH planning.

c. Imputing value to WaSH services. A progressive

approach to WaSH also means helping communities

regard it as a valued service. By learning to value

WaSH, households will be discouraged from engaging

in 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 private-

public 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


88

Regulatory bodies would need to ensure that

such practices as profiteering and price-fixing

are avoided. The commitment to keep WaSH

affordable also entails selection of appropriate

technologies and other resources, from construction/

implementation, operation and maintenance to

future growth. The selection will also need to

consider climate change resilience.

d. Capacity-building. The orientation of the “Protect,

Respect, and Remedy” Framework (Ruggie

Framework) shall be promoted. In addition, the

capacity of the regulatory and implementing bodies

at different levels will have to be enhanced in terms

of their ability to: (1) carry out technical functions or

tasks, (2) commit and engage, (3) relate and attract

resources and support, (4) continuously improve

(adapt and self-renew), and (5) balance diversity and

coherence.100

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

service providers. To be developed are the abilities to:

conduct resource inventory; identify priorities, service

levels, and options; determine technology, human,

financial and other resource requirements; monitor and

evaluate the implementation of WaSH responses and

communicate the results of the monitoring and evaluation.

Local leaders (religious, traditional, and community), the

media, and educational institutions and other culture-

bearing 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

change at the household level. The Bangsamoro

Government may encourage households to invest in

improved water supply and sanitary toilets in exchange

for household durable goods such as solar power

packages.

B.3.4. WaSH in Emergency Response

In more recent times the ability of responders from

government, civil society, and international partners

to provide WaSH support in emergency situations

has improved in relative terms with the creation of

coordinating mechanisms, better information-sharing,

more targeted responses, and the use of the SPHERE

standards.

Appropriate WaSH facilities are important to ensure that

women and children are not subjected to sexual and

other forms of violence in emergency settings. A state

of readiness to provide WaSH emergency response will

have to be maintained and measures taken to address

persistent issues encountered in more recent dislocations

such as variability in the emergency WaSH kits provided

by different responders.

B.4. Housing (Sustainable Bangsamoro Settlements Program and Special Housing Needs Assistance Package)

A Sustainable Bangsamoro Settlements Program with a

Special Housing Needs Assistance Package (SHNAP) will

be launched to include the following in the short term:

B.4.1. Priority Housing for IDPs

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.


89

B.4.2. Integrated Return and Development Programs for the Economically Displaced Bangsamoro (IRDP- EDB)

The effects of the lack of economic programs and good

governance are manifold in terms of insecurity and the loss

of moral ascendancy. They transfuse from one family to a

larger family---the clan—or from one family to other families

in the community. Further, violence is also vulnerable due

to scarcity of economic opportunities where the people vie

against one another in every way to get hold of the limited

resources in the area.

One of the effects is the influx of Bangsamoro people in

the various part of the metropolitan of Luzon and Visayas

to find a living is caused by the dismal economic condition

and the absence of livelihood opportunities in the different

localities of the Bangsamoro. It has been exacerbated the

people living condition when most of these people engaged

in hazardous business just to generate income if not to

survive. Some of them are caught by committing crimes

which brought them mostly at several jails in Metro Manila.

This unwelcome condition that proliferate in the

Bangsamoro area contributes to unproductive growth in the

region. It has also created more dissatisfaction in life which

made them coursed to an aberrated path from focusing

on the proper utilization of potential resources they have

in their place especially on agriculture and fishery and

disappearance of workforce in the likely zones of economic

progress. The number of these Bangsamoro migrants will

continue to multiply for as long as the economic fortune

of the region is not drastically altered. Tragic stories of the

Bangsamoro living in urban ghettos under dismal conditions

will continue to increase if the conducive economic

environment for them to stay in their communities of origin

is not provided.

Similarly, a policy of trying to entice Bangsamoro to return

to their community of origin can only be effective if the

appropriate economic conditions are put in place. For this

reason, the Bangsamoro Government, through the proper

implementation of the BDP, will ensure the installation

of the appropriate environment for the Bangsamoro in

the medium and the long term. This will aid the

Bangsamoro to realize their full potential and fulfill

their collective creativity as they contribute to the

development of their own homeland. Also, it will also

ensure that the dividends of peace are fairly distributed

among the various residents of the Bangsamoro region,

given their active participation in the development

process.

As the situation of the Bangsamoro evolves affirmatively,

the BDP recognizes the imperative need to address

surmountable issues and concerns affecting the

economically displaced Bangsamoro people. They have

moved from their place and dwelled susceptibly outside

the Bangsamoro area. The Bangsamoro Government shall

implement integrated and sustainable socioeconomic

programs and projects for them.

B.4.3. Housing Finance

Alternative funds will be created that will spur housing

production. A financing window will be made available

to low-income families, aside from regular housing

programs of the national government, such as the

Community Mortgage Programs, the NHFMC or Pag-IBIG

Fund, and the like. The participation of NGOs shall also

be expanded in socialized housing, building of strong

public-private partnership, and increasing the capacity

of low-income earners. Studies and consultations will be

made to provide incentives and explore ways to get tax

and fiscal incentives for developers. Alternative tenurial

arrangements such as lease or usufruct will also be

adopted to reduce the cost of land.

In the medium term, the program will support the

following:

B.4.4. Tenure Security

A considerable number of families do not live on their

own lands. This situation can cause land disputes that

can render more people land-insecure. Local Housing

Boards shall be created in every LGU and serve as the

governing bodies in planning and implementing housing

programs especially for Bangsamoro IDPs.


90

B.4.5. Site Development

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.

The effects of climate change shall also be taken into

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.

B.5. Gender

As 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.

Specific focus is also needed on improving prevention

and response to GBV and discrimination based on

gender or disability.

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

government protection mechanisms; and

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;

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 conflict-

affected and post-conflict areas, such as sustained

protection, increased access to justice and healing,

rehabilitation, and development.


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C. Summary of Priority Programs Table 23 presents the list of priority social programs.


Increase household access to WaSH

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 • 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

Improve access to quality education and reduce risk of conflict reversal, toward creating a skilled and able workforce in the Bangsamoro

Education • 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

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 and

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.

Table 23: Priority Social Programs


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80 The World Bank (2005). 81 Human Development Network and United Nations Development Programme (2013). 82 ARMM Regional Development Plan. 83 Department of Health-Field Health Services Information System (2012).84 Philippine Statitics Authority-National Demographic and Health Survey (2013).85 Ibid. 86 Department of Social Welfare and Development data for 2014.87 A more thorough assessment of housing needs in the Bangsamoro is crucial to account for the informal sector including those displaced by conflict.88 Collier (2007). 89 Philippine Statistics Authority-Labor Force Survey (2013). 90 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.91 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)92 Buckland (2006). 93 Commission on Higher Education raw data as of September 2014.94 Collier (2007).95 The World Bank and the Australian Department of Foreign Affairs and Trade (2013).96 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%).

97 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.

98 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).

99 A related standard is that expenses for water and sanitation should not exceed 5% of the disposable income of a poor household.100 Baser and Morgan (2008).101 Mindanao Development Authority, Autonomous Region in Muslim Mindanao, and United Nations Development Programme (2006).

NOTES

C H A P T E R 10Environment and Natural Resources

93

10Environment and

Natural Resources


94

A. Context: Rich but Fragile Natural Resources and Ecological Heritage Equitable and sustainable development is at the heart of the

BBL. Recognizing the rich environmental heritage of the

Bangsamoro, the BBL commits the Bangsamoro Government

to planning development “taking into consideration the

natural resources that are available for its use and for the

use of future generations.”102 In this regard, the Bangsamoro

Government “shall develop a comprehensive framework for

sustainable development through the proper conservation,

utilization and development of natural resources.”103 The

success of this framework will be determined largely by such

factors as an enabling environment, availability of capable

and responsive institutions, a competent bureaucracy

manned by efficient and effective personnel, and an

enlightened and proactive constituency.

To manage the competing dynamics of social justice,

environmental conservation and economic development, an

intergovernmental Bangsamoro Sustainable Development

Board (BSDB) will be established to ensure harmonization

of environment and development and formulate common

environmental objectives between the Central Government

and the Bangsamoro Government.

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

and natural capital into wealth for the wellbeing of its

people, while forestalling recurrent costs from external

threats like natural hazards and climate change.

The environment is at the center of both the economy

and the cultural heritage of the Bangsamoro. Many of its

peoples identify deeply with their environment and are

named after aspects of it—the Maranaw are the “people of

the lake,” the Tausug are the“people of the current,” the

Yakan are the “people of the hill,” and Maguindanaoans

are the “people of the flooded plain.” The Bangsamoro’s

environment is also characterized by its rich assemblage

of varied species and ecosystems. It is home to 10

of the 128 Key Biodiversity Areas in the Philippines,

including areas of global ecological significance, whose

conservation is essential for the very survival of the

Bangsamoro people. With AFF accounting for 63.5% of

output (2009–2012 average) in the ARMM, achieving

sustainable development and growth is intrinsically linked

to having a vibrant and sustainable environment.

However, such activities as deforestation, conversion

of forest lands to agricultural areas, illegal fishing,

and irresponsible mining and extraction are rapidly

undermining the potential for sustainable development.

Poor planning and weak governance are adding to this

critical situation, as is climate change, which is threatening

to render the Bangsamoro people more vulnerable.

A.1. Forests and Watersheds

Approximately 665,000 hectares, about half of the total

BCT land area, is legally classified as forestland and

inalienable. Of this, 35% is under the National Integrated

Environment and Natural Resources10


95

Protected Areas System (NIPAS), 24% is under some

form of management agreement, and the rest is open

access. Data from the 2012 Philippine Forestry Statistics

show 45% of BCT forestlands have forest cover.

While this reflects a net increase in forest cover from

2003 to 2010 because of an increase in open canopy

forests and mangrove areas, the data also reveal a

significant decrease in closed canopy forests for the same

period. As forest cover is depleted, biodiversity is also

decimated. Although poorly documented, deforestation

and degradation of forests—not only in the BCT but

across Mindanao—is attributed to various factors, such as

direct damages caused by armed conflict, illegal logging,

encroachment by IDPs seeking temporary shelter, and

land conversion. Other factors include weak enforcement

of laws and limited capacity to monitor sustainable use

of forestlands due to manpower constraints (i.e., there is

only one ranger for every 1,820 ha).104

The Bangsamoro forests are home to many indigenous

species of fauna and flora. The reduction in primary

forests puts a severe stress on preserving them as part of

a balanced ecology. It also has a significant impact on

watershed areas and their ability to provide water for

local communities and to regulate water levels. Forest

cover data (see Table 24) may seem to negate the forest

cover observation but the Forest Management Bureau

(FMB) confirms that the annual rate of deforestation in the

period from 2003 to 2010 was still 46,900 hectares,105

which was also considered true for the BCT. The national

reforestation average rate for the said period increased

significantly from 30,000 ha/year to around 250,000 ha/

year, which was assumed to extend also to the BCT.

As shown in Table 25, the BCT has four proclaimed

watersheds: (a) Lake Lanao (180,460 ha) is a source of

hydroelectric power and domestic water for Lanao

del Sur and adjacent towns; (b) Kabulnan (4,726 ha)

provides irrigation and domestic water supply; (c) South

Upi (1,894 ha) provides domestic water supply; and

(d) Dimapatoy (3,765 ha) provides potable water for

Cotabato City and adjacent municipalities.106

These watersheds face increasing incidence of drought

and clogging of waterways and irrigation canals due to

siltation and water hyacinth infestation. Another issue

is water pollution from agriculture and industry. Further

pressures come from resettlement in watershed areas,

poor and uncoordinated administration of watersheds

by national and local government agencies, lack of

employment opportunities in the lowlands, and improper

waste disposal.

A.2. Aquatic Resources

The Bangsamoro has rich and significant marine and

freshwater resources that are closely linked to the

sustenance of its people and the economic development

Source: DENR-FMB and Philippine Forestry Statistics (2011 and 2012)

Table 24: Forest Cover Change in ARMM in Hectares (2003–2010)

Province Land Area Total ForestlandForest Cover Change in Forest Cover (2003–2010)

2003 2010 Ha %

Basilan 132,723 47,149 16,505 21,320 4,815 29.2

Lanao del Sur 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

ARMM Total 1,293,552 665,151 250,346 301,894 51,548 20.6


96

of the region and the Philippines as a whole.

Environmental degradation is significantly affecting the

productive capacities of these aquatic resources with

a disproportionate impact on the poorest segments of

society who rely on them for survival.

A.2.1. Freshwater Resources

The Lake Lanao, the largest freshwater lake in the

country, and the only ancient lake in Southeast Asia,

is the biggest protected area in the Bangsamoro. It is a

biodiversity site of global significance, being home to 18

endemic species of freshwater fish and supporting a large

number of bird species.

It is also critical to hydroelectric power production,

supplying 65% of total energy in Mindanao.107 Ironically,

the host province of Lanao del Sur has the highest

poverty incidence in the Philippines.108 This indicates

that the benefits of the BCT’s natural resources have not

extended to its people.

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

source of livelihood in 20 municipalities and one city,

and it straddles Maguindanao, North Cotabato, and Sultan

Kudarat. It is cultivated during the dry season and fished

during the wet season. It supports threatened endemic

species such as the Philippine eagle, the Philippine duck,

and the Philippine crocodile. In view of this, 43,900 ha of

Ligawasan Marsh has been declared a Game Refuge and

Bird Sanctuary and is globally recognized as an Important

Bird Area.

These water bodies are suffering from increasing siltation

caused by soil erosion and from pollution and declining

biodiversity. Deforestation and large-scale forestland

conversion in the upper watersheds; regulated river

flow because of dams constructed primarily for irrigation

and hydropower plants; conversion of marsh areas to

agriculture and fishponds; resettlement along the coastal

areas; and charcoal-making have led to degradation of

the BCT’s aquatic resources, threatening their continued

capability to sustain the Bangsamoro.

Although water demand is projected to remain within the

supply capacity of the Mindanao River, environmental

degradation may affect the recharge potential of the

region’s groundwater reservoirs and watersheds, which

will seriously threaten water availability in the near term.

A.2.2. Marine Resources

The BCT has 3,232 km of coastline and 18,426,613

hectares of territorial ocean waters, including a portion of

the Sulu-Sulawesi Sea, which is one of the richest fishing

grounds in the country and the epicenter of global marine

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)


97

biodiversity. This large marine ecosystem is one of the

most diverse and productive in the world, recognized

for the variety of habitats it supports, from reefs to

mangroves and the second highest seagrass diversity in

the world.109

It hosts the Turtle Islands Wildlife Sanctuary in Tawi-

Tawi, one of the first trans-boundary marine protected

areas involving the Philippines and Malaysia. It is one

of only 10 turtle nesting areas in the world and the only

one in the ASEAN region. This marine ecosystem is also

considered a biodiversity hotspot. The participation of the

Bangsamoro in the trans-boundary management of these

marine resources remains minimal and insignificant.

Fishing and seaweed production are the major

livelihoods, particularly in Sulu, Basilan, and Tawi-Tawi,

contributing to 18% of the national fisheries and 72% of

the national seaweed production.110

There are increasing threats to coastal and marine

resources and their biodiversity from inappropriate

fishing and overfishing, pollution, illegal trade of

endangered species, and haphazard foreshore land use

caused by policies that do not respond to the needs of

the growing population.111 A splintered governance

framework among the ARG, the Central Government,

and LGUs complicates the management of marine

resources.

A.3. Land Governance

While land is an environmental resource, it has

widespread cross-sector implications, as briefly discussed

in Chapters 7 and 12.

Given the complex issues surrounding land rights in

the Bangsamoro, the CAB and the BBL provide for

administrative powers on land administration and

management to the Bangsamoro Government. Related

exclusive powers granted to the Bangsamoro Government

include: (a) management of ancestral domain, in

recognition of IDPs’ right to pusaka inged (native titles);

(b) adoption and implementation of a comprehensive

urban land reform program and land use program; and

(c) as a function of transitional justice, restoration or

reparations arising from any unjust dispossession of

territorial and property rights, the quality, quantity and

status thereof to be determined mutually by both the

Bangsamoro Government and the Central Government.

The various problems in land administration at the

national level are magnified in the Bangsamoro region.

These include: (a) multiple agencies with duplicating

and overlapping functions and complex processes;

(b) multiple applicable laws, causing inconsistencies,

especially on agency functions and mandates; (c)

multiple land titling processes, with the emphasis on a

judicial mode of titling (in contrast to the rest of Southeast

Asia which uses an administrative mode of titling); (d)

multiple forms of ownership; (e) multiple standards for

land valuation; and (f) multiple agencies undertaking

valuation.112

The situation is further exacerbated by (a) inefficient land

record management (thus, the limited formal data on land

ownership and usage in the Bangsamoro); (b) incomplete

and deficient cadastral survey; (c) large number of

untitled parcels; (d) weak monitoring of land policy;

(e) limited public participation in land use planning

processes; (f) lengthy and expensive appeal processes;

and (g) weak framework for large scale land investments,

resulting in land conflicts, uneven sharing of benefits,

and increased investor risks and costs.

For example, the Comprehensive Agrarian Reform

Program in the ARMM covers about 340,000 ha,113 of

which 70% had been accomplished by 2011, benefitting

83,000 beneficiaries. Based on Commission on Audit

reports, evasion and plunder under Voluntary Land

Transfers (VLT) and Voluntary Offers to Sell (VOS) is

worse in the ARMM than in the rest of the Philippines.114

A.4. Mineral Resources and Other Extractives

Little geological assessment work has been conducted

in ARMM to date, resulting in a dearth of reliable and

current geologic information to assess the region’s


98

mineral and other extractives potential. The potential for

mineralization is deduced from the presence of specific

geologic and tectonic settings that are favorable for

mineral deposition. The reported presence of minerals in

specific areas is also used for inferring the potential for

mineralization.115

Of the Philippines’ total petroleum resources of about

nine billion barrels fuel of oil equivalent (bfoe) (or about

690 MTOE), more than half (or about five billion bfoe) is

estimated to be deposited in the offshore of West Palawan

and Sulu Sea regions.

The BCT is said to hold vast deposits of natural gas and

oil, especially Maguindanao along Central Mindanao’s

220,000-hectare Liguasan Delta. The last known

exploration work, however, was in 1997 by the Malaysian

petroleum giant Petronas Carigali and the Philippine

National Oil Company. Maguindanao is also said to hold

108,000,000 MT in coal deposits.

Map 12 illustrates the permissible mining areas based on

Executive Order No. 79 series of 2012. This includes the

existing nickel mining operation in Languyan, Tawi-Tawi.

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

environmentally-sustainable human development.

A.6. Urban Areas and Residuals Management

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

In capital cities and towns, solid waste management

is consistently identified as one of the main sources of

dissatisfaction. Only one sanitary landfill receives the

combined wastes of 128 municipalities and four cities,

estimated at 940 MT per day and expected to reach

972.14 MT per day in 2016.117 The region also has 19

materials recovery facilities (MRFs) serving 19 barangays.

With a high concentration of urban areas along

waterways, poor waste management results in flooding

and water supply contamination. Only three LGUs have

approved solid wastes management plans in compliance

with the Ecological Solid Wastes Management Act.

As discussed in Chapter 9, the ARMM has been cited as

having persistently low coverage rates for safe water and

sanitary facilities. It has the poorest access to safe water

and to sanitary toilets, at 55% and 34%, respectively.118

Consequently, it has the highest reported incidence of

water pollution from sewage and the highest reported

incidence of sanitation and hygiene-related diseases. The

DENR-EMB has designated several BCT water bodies as

Water Quality Management Areas (WQMA) for which

management plans will be drawn up, to keep water

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

aggravated by climate change. These include flooding,

rain-induced landslides, volcanic eruptions, storm

surges, and earthquakes. Flooding around the Mindanao

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.


99

There are at least five volcanic complexes in and around

the BCT: (a) Lanao Volcanic Complex; (b) Ragang

Volcanic Complex; (c) Mt. Parker; (d) Mt. Matutum

Volcano Complex; and (e) Mt. Dajoh.119

Particularly vulnerable to storm surges and tsunamis

are the coastlines of Basilan, Sulu, and Tawi-Tawi. The

periodic El Niño Southern Oscillation (ENSO), which

caused the highest economic losses in Maguindanao in

1998, also threatens the region.

While typhoons are infrequent in the ARMM, the

peripheral effects of a typhoon passing through

neighboring provinces can be felt in the region.120

PAGASA data show that in the period from 1955 to

2010, a span of 55 years, only four cyclones (one tropical

depression, two tropical storms, and one typhoon) passed

through the BCT. However, the same number of cyclones

passed through the area in just the past four years (2011

to 2013), indicating a radical change in pattern for this

hazard.

Climate change projections by PAGASA include an

increase of 1.0-1.2oC in the short term (2020) and 2.0-

2.4oC in the medium term (2050) in ARMM temperatures.

Rainfall in the short term is projected to increase by

as much as 7.2% from December to February and

decrease by as much as 7.4% from June to August. The

frequency of extreme events is also expected to increase

significantly. The number of days with temperatures

exceeding 35oC is projected to rise at least eightfold

from the observed baseline. The number of dry days is

projected to increase by more than 150%, and days with

extreme rainfall by at least 250%.

Map 12: Integrated Mining Map (EO 79) (2013)

Source: DENR-MGB (2013)


100

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.

Despite these significant risks, the BCT has had no

vulnerability and disaster risk assessments and has limited

capacity for disaster risk reduction and management and

climate change adaptation (see Map 13).

B. Strategic GoalsSharp focus will be needed on regional and local

institution-building for environmental governance to

enable the Bangsamoro to manage the environmental

threats caused by indiscriminate exploitation and

degradation121 and cope with the impacts of natural

hazards and climate change. This will need to be

complemented by environmental baseline establishment

and quick-impact programs and projects to address

both poverty alleviation and wealth creation needs in host

communities, and improve the environmental and natural

resources base quality for sustainability. The two sectoral

goals are: (a) enhancement of the environment and natural

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:

1. Conserve and enhance the ecological integrity of the

Bangsamoro region in the context of comprehensive

sustainable development and vicegerency and

2. Enhance the Bangsamoro communities’ capacity

to manage disaster risks from natural hazards and

develop resilience to climate change impacts.

Map 13: Vulnerability (2008)

Source: SERD-CAAM (2008)


101

C. Strategies

C.1. Environmental Governance

Preserving the rich ecosystem across the Bangsamoro

has wide-ranging effects on the wellbeing and economic

potential of the region. Sustainable management of

environmental resources will improve the ability of

communities to benefit from their natural surroundings,

reduce the prevalence of flooding, and contribute toward

developing a tourism industry in the region. This will

require a strong environmental governance regime that

will include:

a. Formulation of a comprehensive framework for

sustainable development in the Bangsamoro and a

Strategic Environmental Management Plan (SEMP);

b. Capacity-development of Bangsamoro environment

and sustainable development institutions,

including a Bangsamoro Sustainable Development

Board (BSDB) and the envisioned Ministry of

Environment;

c. Integrated Environmental Governance systems to

have a broader form of management for areas of

particular ecological significance, such as Lake

Lanao and the Ligawasan Marsh;

d. A mechanism for equitable sharing in the use of

Lake Lanao waters as a source power generation

for the effective development of the watershed

ecosystem;

e. Strong policies under the Bangsamoro Waters and

Zone of Joint Cooperation agreed by the Central

Government and the Bangsamoro Government;

f. A comprehensive natural resource assessment,

especially of biodiversity and of mineral deposits;

g. A culture-based information drive to help the

people of the BCT realize the importance of

sustainably managing the environment; and

h. An ecotourism development strategy based on

preserving landscapes, seascapes, and abundant

biodiversity in the BCT. As discussed in Chapter 7,

the ecotourism potential has high implications on

the region’s economic growth and promotion of

social cohesion.

C.2. Forest and Watershed Restoration

The region’s forest cover has been dramatically shrinking

over the past decade, and the effects on communities

and the ecosystem are evident, with rampant flooding,

landslide, temperature increases, etc. This concern will be

addressed through:

a. The restoration and enhancement of degraded

and denuded forestlands, including nurseries, and

coastal and marine ecosystems will not only ensure

future sustainability of these habitats and their

resources, but can also double up as labor creation

opportunities;

b. The protection of hedgerows through planting of

appropriate species that will hold the soil nutrients

and prevent from erosion, and siltation;

c. The immediate forest based livelihoods from non-

timber forest products (NTFP) and agro-forestry in

support of forest protection;

d. Forest boundary delineation to define the extent

of forest cover for both protection and production

purposes; and

e. A strong monitoring mechanism to ensure that

efforts are sustained. This will include hiring of

forest guards and sea guards—job positions that can

lend themselves well to the out-of-school youth and

decommissioned forces.

C.3. Land Governance

The BDP recommends formulating an interim land policy

that will lead to development in the medium term of a

strong and unified policy and legal framework on land

rights, with the objective of restoring public confidence

in the land administration system and building the

foundations of reconciliation and trust-building. This

would include a sound institutional framework, with one

land administration agency for land registration, cadastral

survey and mapping, and collection of land and related

fees. It would also call for fair, impartial, and streamlined

procedures and reasonable transaction costs that would

encourage participatory policymaking.


102

C.3.1. Short-Term Actions (2015 and Mid-2016)

To reduce the risk of a strong increase in land conflicts

and associated violence and instability in the post-

CAB environment, three policy actions in the transition

period are recommended:

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

rapid response aimed at preventing escalation.

The initial task will be setting up a geographic

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

interest to agribusiness and mining investors.

This information would help focus initial efforts

to: understand the nature and extent of disputes;

test appropriate mechanisms to resolve them;

and provide the basis for selecting initial areas to

pilot efforts to register land rights systematically.

It would inform ongoing initiatives, such as the

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),

an interagency body on land use and physical

planning, which was recently strengthened

and reformed as a NEDA Board Committee.

The following land-related analytical studies could

also be undertaken:

i. Inventory of laws and regulations relating to

land and property rights in the Bangsamoro;

ii. Assessment of the capacity of the formal judicial

and informal/traditional dispute mechanisms in

key locations;

iii. Intentions survey among displaced persons

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.

c. Ensuring that existing land conflicts can be

resolved by strengthening the capacity of local

institutions to mediate land conflicts, especially

through improved coordination, communication

and learning among the different actors involved.

These mechanisms would need to provide for

sustainable settlements, framing jurisdictions

acceptable to the law of the community and Islam.

Establishment of an ad hoc mediation body for

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,


103

especially in some Moro communities, and also in some

IP communities, where, among other things, individual

titles are not necessarily desired or feasible at this time.

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

to pollution in the region. To tackle this, the Bangsamoro

Government would need to:

a. Formulate a Bangsamoro Core Territory Sustainable

Cities/Towns Plan and initiate redevelopment in pilot

areas to serve as a model for urban management in

the region;

b. Develop and implement a comprehensive residuals

management program and a comprehensive waste

management program across the BCT, including

installation of additional waste treatment facilities;

and

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

Bangsamoro Government for climate change

adaptation and disaster risk reduction.

D. Summary of Priority ProgramsThe programs to achieve the goals and objectives and

respond to the problems identified in the region are

described in Table 26.


104

102 “Proposed Bangsamoro Basic Law,” Article XIII, Section 2.103 Ibid., Section 3.104 This was confirmed by DENR-ARMM FMS Director Ismael Mabaning during a meeting discussion on August 19, 2014 at the DENR-ARMM office.105 National Mapping and Resource Information Agency (2010).106 Department of Energy and Natural Resources-Autonomous Region in Muslim Mindanao (2012).107 Japan International Cooperation Agency (2014) and Benito (2014).108 Philippine Statistics Authority (2012).109 World Wildlife Fund (2014).110 Malik and Alcos-Cabangbang (2013).111 Mindanao Development Authority (2012).112 See Tiamson and Ballesteros (2013). 113 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.114 Gutierrez and Borras (2004). 115 Japan International Cooperation Agency (2014).116 Housing and Land Use Regulatory Board (2014). 117 National Solid Waste Management Commission (2014).118 Department of Health (2011).119 MRBIMDP (2012) and PDPFP Sulu (2013).120 Tio (2014).121 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.

NOTES

Table 26: Priority Environment and Natural Resource Programs*


To preserve the ecological integrity of the Bangsamoro in the context of comprehensive sustainable development

Environmental Governance • 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)

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

• Ecological Solid 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 communities’ adaptive capacity for climate change and DRRM

CCA/DRRM for Social Justice and Mitigation of Displacement

• Comprehensive Vulnerability Assessments and Watershed Characterization• Formulation of risk-based Comprehensive Land Use Plans (CLUPs) for all LGUs

in the Bangsamoro• CCA/DDRM capacity-building

* Programs on mineral resources and other extractives can be found in Chapter 7.

C H A P T E R 11Culture and Identity

105

11Culture and Identity


106

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.

A. Context: The Diverse Culture in the BangsamoroThe Bangsamoro society consists of 13 Muslim ethno-

linguistic 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 ethno-

linguistic groups in the Bangsamoro are provided in

Annex F (Cultural Diversity in the Bangsamoro).

Culture and Identity11


107

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 affiliationsSource: BDP-CPT estimate (using PSA-CPH 2010 data)

Map 14: Ethnic Diversity Index (2010)

Source: PSA-CPH (2010), DSWD-NHTS (2010), PhilGIS (2013)


108

Initiatives that recognize and preserve Bangsamoro culture

and identity are scarce, leaving much of its language,

historical narratives, and artifacts to be eroded by time and

modernity. Many important historical figures, events, and

places are no longer in public memory, especially for the

younger generation. The practice of indigenous sports and

games, music, visual art, literature, dance, and crafts have

been largely relegated to the margins. There are no codified

rules and regulations on burying the dead, and so graves

are scattered without designated maqaabir al-’aam (public

cemeteries).

The cultural implications on sustainable human

development are immense. Traditional health practices are

still prevalent in remote areas in the absence of adequate

public services. There have been no significant measures to

align mainstream health service delivery with those through

the waliyan (midwives) and taligamot (traditional healers).

Some initiatives toward the use of indigenous mechanisms

for conflict resolution and peacebuilding have yielded

positive results. However, traditional leadership structures

and titles, while prevalent, are largely nominal and have

limited interface with present governance structures.

The enhanced scope of powers vested in the Bangsamoro

Government as embodied in the BBL therefore provides an

opportunity to address these institutional and developmental

concerns, including IP rights.

B. StrategiesIn 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.

The sectoral goal is, therefore, to support practices

and build foundations for institutions that preserve and

strengthen the Bangsamoro’s diverse cultural resources

and heritage, in line with the objectives of sustainable

human development and peacebuilding.

In achieving this goal, the strategy on culture and identity

is articulated around the following three objectives:

1. To assist communities to identify and preserve their

cultural resources, traditions, values, and practices;

2. To establish and strengthen cultural institutions

to protect, conserve, nurture, and promote

Bangsamoro’s tangible and intangible cultural

heritage; and

3. To promote creation and sustainability of local

culture, heritage, and art groups through various

forms of incentives and assistance.

B.1. Conservation of Cultural Heritage

As described in the BBL, the BCPCH will be created

primarily to record the history of the Bangsamoro people

and to establish and sustain the cultural institutions,

programs, and projects in the Bangsamoro component

areas. To assist the BCPCH in the full exercise of its

functions upon creation of the Bangsamoro Government,

multiple studies will need to be conducted during the

transition period. These will include:

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


109

take charge of collation, collection, preservation,

and promotion of remaining relics and artifacts of

Bangsamoro culture. This will include retrieval

of artifacts that may be stored in museums

and national archives both in and outside the

Philippines.

Quick-impact projects will be implemented during the

transition period in line with confidence-building and

stabilization components of the CAB, as well as with the

requirements of transitional justice during normalization.

This may include installing historical markers to

commemorate the Bangsamoro struggle, and building

maqaabir al-’aam (public cemeteries) in priority sites.

B.2. Culture and Education

In accordance with BBL provisions on establishing an

educational framework that will be relevant to the needs,

ideals, and aspirations of the Bangsamoro, efforts will be

undertaken to support cultural initiatives that can enrich

the Bangsamoro educational system, including:

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;

c. Revival of Bangsamoro cultural sports;

d. Establishment of schools of living traditions; and

e. Support for artistic excellence.

B.3. Culture and Development

The mainstreaming of Bangsamoro culture and identity

in governance and development is at the heart of the BBL

and the BDP, as evidenced in the structure and function

of the proposed Bangsamoro Parliament, as well as the

inclusion of such culturally relevant mechanisms as

Shari’ah-compliant finance and justice, among others.

This will be realized through the mainstreaming of

cultural sensitivity in the actual implementation of such

policies and programs throughout the transition period,

to ensure that all development interventions are designed

with a “bottom-up” framework in mind.

Culture has to be seen also as a key resource for

the Bangsamoro. Weaving, brass-making, and other

indigenous handicrafts and metal crafts should be

revived and promoted, used to develop cultural tourism

and other related public-private partnerships, in tandem

with the improvement the institutional, infrastructure,

and security bases for investment.

Likewise, the health system will be strengthened, by

providing birthing facilities and forming partnerships

among Muslim religious leaders and traditional and

western-trained midwives, and to optimize the mix of

modern and traditional reproductive health elements,

while remaining respectful of history and culture.

B.4. Promotion of Culture and the Arts

Bangsamoro heritage, culture and arts will be

popularized through the media and by encouraging

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

Grants and scholarships for regional, national, and

international intercultural exchange and cooperation will

be created, in line with the development priorities of the

Bangsamoro Government.

B.6. Culture and Peace

This includes grants for the conduct of dialogue

initiatives, youth peace camps/trainings, and other

cultural projects that can support peacebuilding and

unity among Bangsamoro communities.

C. Summary of Priority ProgramsA summary of the priority plans and programs for the

transition can be found in Table 27.


110

Table 27: Priority Culture and Identity Programs


Assist communities to identify and preserve their cultural resources, traditions, values, practices

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

Establish and strengthen cultural institutions to protect, conserve, nurture, and promote Bangsamoro’s tangible and intangible cultural heritage

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

Promote creation and sustainability of local culture, heritage, and art groups through various forms of incentive assistance

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

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).

NOTES

C H A P T E R 12Governance

111

12Governance


112

The Autonomous Region in Muslim Mindanao (ARMM)

commenced as an Autonomous Regional Government (ARG)

in 1989. The establishment and administration of the ARMM

proved too arduous, and the ARMM Government has been

constantly associated with weak governance. The transition

to the Bangsamoro Government will offer an opportunity to

address structural problems and reconfigure the relationship

among the national, regional, and local governments. It

will also open up the chance to strengthen accountability

mechanisms, particularly those that engage communities in

local governance, in line with the Bangsamoro vision for self-

determination based on strong community engagement.

As Chairman Murad said at the launch of the Sajahatra

Bangsamoro Program in February 2013, “further

development can only be effective when it is people-

centered. One that is determined and undertaken by its

ultimate beneficiaries. One that empowers people and its

processes empowering.”

This chapter discusses the governance challenges facing the

region, presents the transition imperatives from the current

ARMM to the Bangsamoro Government in mid-2016, and

proposes interventions and targets to achieve these.

A. Context: Governance Structures and Systems in the Bangsamoro

A.1. Governance Structure and Intergovernmental Relations

Since its creation, the ARMM has been faced with the

challenges of: (a) lack of genuine autonomy; (b) weak

technical capacity; (c) political patronage and political

dynasties; and (d) accountability deficits.

A.1.1. Lack of Genuine Autonomy

The LGUs—the provincial, city, municipal, and

barangay—comprising the ARMM are not formally

subordinate to the regional government. The LGUs are

pre-existing entities with their own elected local officials

and receive automatic appropriations from the Central

Government. As such, they are effectively autonomous

from the ARMM. Given then that the ARMM is “less

autonomous than local governments…and more

subservient and dependent on the National Government

than any other political sub-division in the country,”123

the ARG has struggled to build consensus around

regional priorities and implement regional policies.

A.1.2. Weak Technical Capacity

Given the poor education outcomes in the ARMM, the

regional and local governments have a shallow pool

of technocrats, particularly for such key governance

skills like planning, budgeting, and accounting. Due to

politicization, appointments are often based on affiliation

rather than qualification, discouraging qualified staff from

remaining in government.

A.1.3. Lack of Accountability

Lack of technical skills is compounded by weak or

nonexistent public accountability systems.124 Minimal

community engagement in local development bodies,

weak public oversight of service delivery, and lack

Governance12


113

of a performance-based framework that links access to

public funds to performance have meant that the current

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

(including LGU IRA and Central Government line agency

spending) is raised in the region. As a result, this allows the

budget to be subjected to national control.127

A.2.2. Poor Budget Management

Budget management has generally been weak in the region.

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

outputs or performance targets is nonexistent.”128

With limited reporting on results and outcomes, the Central

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

programs in the ARMM through neighboring regional

offices of national line agencies rather than through the

regional government.

A.3. Civil Society and Community Engagement in Governance

Direct community engagement in governance has been

very limited in the ARMM outside of major community-

driven development projects run by the BDA and the

ARG.129 Mandatory community participation in local

development councils is usually nonexistent. The

Bangsamoro region has a number of capable civil society

networks and organizations that are active in such

fields as human rights, conflict monitoring, and public

service delivery monitoring. However, transparency and

accountability to the public remains limited.

Strengthening participation in local health boards,

parent-teacher associations, and other community

organizations active in service delivery would help to

improve the relevance of services and accountability

to the public. Increasing access to information on

government performance is also critical to fostering

public accountability.

A.4. Judicial Institutions

Injustice is at the heart of the Bangsamoro struggle

for self-determination. It is also the main driver of

violent conflict and poverty in the BCT. Strengthening

judicial institutions to promote social justice and

correct historical wrongs is central to the BDP. And yet,

impunity and limited access to justice for marginalized

members of the community characterize the delivery of

justice services in the Bangsamoro.

Figure 31: Principal Sources of Government Funds to ARMM (2009–2011)

Source: DFAT-Australia and WB (2013)—Basic Education in ARMM


114

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.

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

Women suffer additional challenges in accessing justice.

Community-based justice systems in particular tend to

reflect local power structures that often discriminate

against women, who are under-represented in positions of

leadership. In the State Shari’ah Courts, although women

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 state-

minority 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.

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 PhaseBesides the above governance issues that will require

significant time, effort, and resources to resolve, there are

immediate tasks that the Bangsamoro Government will

need to address during the transition period. Adequate

responses to these will build the foundations upon which

solutions to these medium- and long-term challenges can

be resolved.


115

The transition from the ARMM government to the final

establishment of the Bangsamoro Government can be

split into three phases, each with distinct governance

arrangements:

1. BTC leadership from mid-2014 up to the passage of

the BBL;132

2. BTA leadership from the passage of the BBL up to the

installation of the elected Bangsamoro Government;

and

3. First term of the Bangsamoro Government.

The challenges and sequencing confronting the Bangsamoro

Government in each phase are summarized in Table 28 and

described fully in the following section.

C. Transition Challenges, Features, and TargetsThis section describes in detail the critical challenges,

features, and targets for each phase of the transition (see

Table 28)

C.1. Overall/General Transition Challenges

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.

C.1.1. Constituency-Building and Inclusivity

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.

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

region’s constituency to strengthen governance. The

element of building and uniting that constituency is

therefore imperative, particularly with ethnically diverse

constituents. Moreover, in establishing unity, the role

of women must be recognized and harnessed, as a

sector that comprises half the constituency. Access to

information needs to be fostered as an important element

in building trust in the Bangsamoro Government.

To strengthen the constituents for the Bangsamoro

Government, inclusivity must be fostered at various levels:

among ethnic groups that comprise the region; in the

distribution of the benefits of the dividends of the peace

process; among groups belonging to different political

factions, particularly among LGU officials, MNLF, among

others; and active participation of women in various facets

of the development task.

C.1.2. Intergovernmental Relations

By its nature, the Bangsamoro Government will need

to have robust intergovernmental mechanisms to

facilitate harmony, cooperation, and coordination

between itself and the Central Government. Ensuring

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

transition. While most of Bangsamoro’s procedural

systems will have to adopt a national standard, some

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

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.


116

Table 28: Challenges, Features, and Targets of Transition Phases I, II, and III

Phase I – BTC leadershipApril 2014 until Passage of the BBL

Phase II – BTA leadershipThe Passage of the BBL until May

2016

Phase III – Bangsamoro GovernmentMay 2016 onwards

Overall / General Transition Challenges

• 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

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 (GPH-MILF), 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 non-government 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.

• 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.

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, functions, properties and other assets of the ARG is completed

• Ensure uninterrupted delivery of basic services

• Help ensure conduct of a successful plebiscite (in 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 constituency-building campaign

• Reorganize Government and establish new administrative systems

• Develop system support the realization of fiscal autonomy

• Launch campaign to reform LGUs in the Bangsamoro region


117

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

The characteristics of each phase limit the types and

nature of activities that can be implemented.

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

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, and the MILF’s current

implementation organizations 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

arrangement.134 The critical features of this phase include

the following:

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


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e. The plebiscite and then the regular election for

Bangsamoro Parliament members will preoccupy

both the GPH and the BTA; and

f. Donor support for the Bangsamoro is expected to

be high.

The BTA will have fewer limitations during this phase,

but the plebiscite and the regular election are expected

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,

there will be events requiring detailed and meticulous

planning and various nuts-and-bolts issues will likely

arise. A good transition team would have to be formed

for the tasks. Second, it represents the handover stage,

from the BTA to the first Bangsamoro Government-elect.

Between these two milestones, the BTA will have to

ensure that “the continued functioning of government in

the area of autonomy is exercised pursuant to its mandate

under the BBL.”137 That means that while in office the

BTA will need to guarantee uninterrupted delivery of

public services while new institutions are being created

and their capacity is being enhanced.

C.2.3. Phase III—First Term of the Elected Bangsamoro Government (May 2016 onwards)

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.

Depending on the results of the plebiscite and the

elections, indications of private sector interest to invest in

the Bangsamoro may begin to show.

C.3. Transition Targets: What Need to be Done

Each of the phases during the transition period will

require different sets of targets/activities, as detailed in

the following section.

C.3.1. Phase I—BTC Leadership (April 2014 until the Passage of the BBL)

In Phase I, the targets/activities will be:

a. To organize and prepare a transition coordination

team to support the BTA in performing its mandate;

b. To organize and prepare a policy development team

to support the BTA;

c. To formulate a BDP that identifies programs and

projects and their cost estimates that will be funded

by the SDF;

d. To establish and follow through on implementation

of the transitional bodies (i.e., JNC, IDB, TJRC,

JPSTs, JPSCs) and task forces on camps and

amnesties and pardons;

e. To establish a body to manage the policing

challenges; and

f. To coordinate with the Commission on Elections

(Comelec) on overseeing the plebiscite.

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

had signed terms of reference for the Coordination Team

for the Transition to the BTA; otherwise known as the

CT4T.

C.3.1.2. Organizing a Policy Development Team139

A Policy Development Team would need to be organized

to conduct research and policy studies urgently needed

to inform the BTA and, eventually, the Bangsamoro

Government on priority issues. It could conduct the

policy researches itself, or contract the services of

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

research and development.

C.3.1.3. Special Development Fund (SDF)

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

BTC would need to be regularly updated on the progress of

these bodies, as they are critical in determining the outcome

of the concerns assigned to them.

Of particular importance is the establishment of a body

that will manage “policing” operations. The Independent

Commission on Policing (ICP) has made concrete proposals

on reforms that will be needed in policing the Bangsamoro

region within the stipulations of the agreements between

the GPH and the MILF. A unit would need to be created to

ensure implementation of these proposals.

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.

C.3.2. Phase II—BTA Leadership (Passage of the BBL until May 2016)

Phase II has five major target activities:

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


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assist in receiving and reviewing the various reports to

be submitted by the ARG. These will include financial

reports, property inventories, personnel inventories, and

others, which would be the basis for the formal turnover.

Milestone events of this activity will include the turnover

of physical properties and financial assets and the proper

disposal of those physical assets according to auditing

rules, if needed.140

In addition to the inventory of financial and nonfinancial

assets and official records, the ARG could prepare a

comprehensive baseline on the “state of the different

sectors in the ARMM” (i.e., the “Open Data” project).

This would be an important document that the CT4T

members could preserve and which the BTA and the

Bangsamoro Government could maintain and continue.

C.3.2.2. Completion of Preparations for Reorganization

Preparations for reorganization will cover the following:

a. Design and Approval of Administrative

Bureaucracy and Organizational Structure. This

document will detail the organizational structure

of each agency defined in the BBL, the mandatory

positions, qualification standards associated

with each mandatory position, and the required

competencies.

b. Drafting and approval of an Organizational

Rationalization Program. This will outline in

detail what line agencies and what positions are

to be retained, the process of personnel transfer/

separation, hiring/rehiring, amount of separation

pay, grievance management system, and others.

This will ensure that the rights of civil servants

are protected. The program will be guided by the

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

of delivery. If none is provided in the BBL, this plan

will detail the establishment of a regional government

agency that will be responsible for implementing

technical assistance programs to line agencies and

capacity-building programs for line agency staff.

d. Completion of an Organizational Performance

Implementation Framework and Performance

Evaluation System (OPIF-PES). Until the current

administration, absence of a performance

monitoring and evaluation framework in the ARMM

disabled attempts to evaluate regional operations

at the outcome level. This inability contributed to

inefficiencies attributed to the ARG and stymied

attempts to establish organizational and individual

accountability. The OPIF is an effective framework

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

and the Bangsamoro Government, a new OPIF-PES

will be needed.

e. Organization of a Transition Oversight Committee

and Completion of a Monitoring Framework for

Transition. An oversight committee with defined

mandates and composition will be needed to

shepherd the transition process. It would need to be

composed of high-level officials of the GPH and the

MILF, and could also include some members of the

Third Party Monitoring Team (TPMT) as the transition

involves implementing provisions of the peace

agreement.141 Based on the ARMM experience, it is

important to have strong oversight of the transition

process, to facilitate resolution of issues as these are

encountered.

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


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boundaries. Decisions on whether or not business

transactions are within the region will depend on

this study. The study will contain reference maps,

which will need to be closely coordinated with

the National Mapping and Resources Information

Authority (NAMRIA) of the Philippines. It should

provide guidance on what to do with “orphan LGUs”

(municipalities or barangays) that have decided to

join the Bangsamoro and have to be carved out of

their provinces or municipalities.

e. Creating regional special bodies on audit and civil

service. The BBL provides for creation of special

bodies for audit and civil service administration. It

will be important to study how these bodies relate

to the regional government and to their parent

organizations and the range of powers within the

region. The Commission on Audit and the Civil

Service Commission are both constitutional bodies

and their integration into the regional government

will need diligent and careful study.

f. Review and approval of regional local government

code. The LGUs are likely to pose a serious concern

to the new regional government. Ambivalence on the

part of both the Central Government and the regional

government has led to LGUs functioning practically

on their own. The present regional local government

code may need to be reviewed and revised. In the

context of a parliamentary form of government,

the Bangsamoro Government will need to define

new relationships between itself and its constituent

LGUs. It will need the LGUs for revenue generation

purposes (collection of fees and regional taxes), and

the systems and procedures for that purpose need to

be tightened.

g. Conducting a study on promoting the Shari’ah

justice system. A consistent demand of the

Bangsamoro peace negotiators was promotion of

the application of Shari’ah justice system in the

region as part of their adherence to Islamic values

and respect for their distinct cultural identity. It is

operations and decision-making. It can include a

definition of territory and constituency as well as

administrative procedures to guide civil servants in

their day-to-day tasks. It delineates functions among

the different line and staff agencies and other units of

the regional government.

b. Review and enactment of a regional electoral

code. The enactment of a Bangsamoro Electoral Code

is a priority. As proposed in the draft BBL, the first

regular election for the Bangsamoro Government in

May 2016 shall be governed by this electoral code,

although National Omnibus Election Code shall apply

suppletorily, where appropriate.

c. Review and approval of the regional revenue code.

The BBL identifies the revenue sources of the regional

government. These would form the basis for a review

of the present regional revenue code, or its repeal,

as the case may be, based on the study results. Work

on this matter would be urgent, as action on a new

revenue law would be among the first items in the

agenda of the Parliament. It would include drafting

specific guidelines for establishing tax bases, tax rates,

remittance of shares from internal revenue collections,

income from natural resource extraction, incomes of

government corporations from operations in the region,

and other sources. These would help the BTA discuss

procedural matters pertaining to fiscal autonomy with

the Department of Finance. The task would involve

working with an interim Intergovernmental Fiscal

Policy Board (IFPB)and later a permanent IFPB.

This is one of the four priority legislations to be

accomplished by the BTA, including the Bangsamoro

revenue code, the Bangsamoro Electoral Code, and the

Bangsamoro Civil Service Code.

d. Conducting a study defining the land and water

boundaries of the region based on the results of

the plebiscite. The Bangsamoro Government and

the Parliament will need this study because many

decisions will rely on the accuracy of regional


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important that a study on the feasibility of its

expanded application be undertaken, taking into

consideration the pluralistic nature of the justice

system prevailing in the region. The study would

inform discussions in the Bangsamoro Parliament

on promoting wider application of Shari’ah

justice. Further details on Shari’ah justice are in

the next section.

h. Drafting a law to delineate the rights of IPs

in terms of exploitation of natural resources

within their territories. Section 11 of Article XIII

(Economy and Patrimony) of the BBL specifies

that a law will be drafted to define the rights of

the IPs in the exploitation of natural resources

within their territories. This is consistent with the

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).

i. Guidelines on receipt of grants and donations

from foreign and local donors. The BBL allows

receipt of grants and other donations from

foreign and domestic entities.The first three

years of the regional government will see many

donors wanting to contribute to the success of

the Bangsamoro experiment. For transparency, it

would be important to have rules on receipt by

the Bangsamoro Government of donations and

foreign assistance.

j. Modifying the regional budgeting and budget

management system. With the block grant

and SDF as predictable sources of funds from

the Central Government, the Bangsamoro

Government may now prepare budgets from

a single regional fund, whereas previously

there were two: allocations in the General

Appropriations Act, and the local fund. The

systems and procedures on budgeting, execution,

and monitoring will need to be reviewed and

modified substantially. A more substantive

performance-based budgeting system could be

expected with the introduction of the Organizational

Performance Indicator Framework (OPIF). The budget

system would need to allow the regional government

to access funding for identified priority projects that are

still covered by national government mandates.

k. Inventory, review, and adaption of relevant

administrative procedures. This task covers two

sets of procedures. The first pertains to procedures

governing relations between the legislature and the

executive (Bangsamoro Parliament and Bangsamoro

Government) in a parliamentary system. The second

pertains to procedures for government operations such

as procurement, government accounts management,

personnel management and other similar systems.

l. Formulating procedures pertaining to relations

between the legislative and executive organs

of the regional government. Rules, regulations,

and procedures governing relations between the

Parliament and the Government (i.e., the Cabinet) in

a parliamentary environment need to be documented.

Such documentation would guide not only officials

and staff of the Parliament, the Chief Minister (and

his/her Deputy) and the Cabinet Ministers, but also

the ministry and Parliament staff who will have to

deal with each other. This is particularly important as

parliamentary procedures are alien to most Filipinos.

m. Formulating procedures on procurement, government

accounts management, personnel management

and others. One of the major issues on regional

administration in the 1996 GRP-MNLF Peace

Agreement was the late adoption and documentation

of administrative procedures, which caused confusion

and disorganization. To avoid this mistake, the new

regional government will have to do an inventory

to all relevant manuals pertaining to government

administration, and adapt these to its operations. These

procedures may need to be reviewed in the context of

the ministerial form of governance. Some procedures


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may need to be incorporated into the administrative

code.

n. Optional creation of provisional intergovernmental

bodies. The FAB and its Annexes provide for

creation of six intergovernmental special bodies

relevant to governance, and other special bodies for

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

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

C.3.2.4. Implementation of a Constituency-Building Campaign

It would be essential for the BTA to show inclusiveness

in its operations and decisions from the start in order to

build a constituency for the Bangsamoro Government.

Demonstrating representativeness and participation

of all stakeholders in each institution and act would

be critical to winning support from Non-Bangsamoro,

settlers, and non-MILF constituencies. In building new

institutions, there may be a need to capitalize on skills

that are spread across all ethnic groups to ensure adequate

capacity to deliver on its mandate immediately and meet

expectations.

C.3.3. Phase III—First Term of the Elected Bangsamoro Government Officials (May 2016 onwards)

This phase covers the period from the inauguration of the

newly elected Parliament members to the end of 2019.

During this period, the BTA will relinquish its mandate

in favor of the convened Parliament. The BBL defines the

functions and operations of the Bangsamoro Parliament,

the Office of the Chief Minister and the Cabinet, and the

relationship between the Parliament and the Government.

An accepted practice in parliamentary democracies is

that the executive sets most of the legislative agenda. At

this point, the BTA’s Policy Development Team could

be formally integrated into the regional government to

support its agenda-setting role.

With the installation of the first Parliament and the

Bangsamoro Government, the activities/targets for this

phase are: (a) the regional government is reorganized

and its administrative systems are in place; (b) systems to

support the realization of fiscal autonomy are installed; and

(c) the campaign to reform LGUs in the Bangsamoro region

begins.

C.3.3.1. The Regional Government is Reorganized and its Administrative Systems are in Place

Among the key activities under this agenda are:

a. Implementation of the organizational rationalization

program.This program would best be placed directly

under the Chief Minister, who shall organize a

rationalization program committee to oversee its

implementation. Committee members may include

representatives of the Civil Service Commission,

members of the Cabinet, the employees of the

abolished ARMM regional government, the

Government Service Insurance System, and the

Pag-IBIG Fund, and a member of the CT4T. This

program will need to be coordinated closely with

the reorganization of the regional administrative

bureaucracy.

b. Reorganization of the line and support agencies and

offices of the regional government. The design of

the regional government’s structure and designation

of mandates and functions to the different line

(Ministries) and staff (Offices) units shall have been

completed under the BTA. Guided by those, former

ARG departments that have been functioning on

an interim basis will be reorganized into the regular

service delivery units of the Bangsamoro Government.

With the structures defined and mandates allocated,

position qualification standards are defined and the

regional government embarks on a campaign to

attract the best and the brightest in the region. Staff

members of the abolished ARG who are found to be

highly qualified will be encouraged to apply for new

positions.


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The reorganization will also cover the introduction of

the OPIF, against which each agency’s and individual

staff’s performance will be measured. A Performance

Monitoring System would be needed to allow the

Bangsamoro Government to evaluate achievement of

desired outcomes. Among the first major application of

the OPIF would be the preparation of the Bangsamoro

Government’s First Six-Year Plan. Being outcome-

oriented, the OPIF should be able to provide the

regional line and service agencies, guidance in linking

goals and objectives to agency program, project, and

activity (PPA).

Use of the OPIF framework would facilitate its linkage

to the annual budgets as well as the Medium-Term

Expenditure Framework (MTEF) and Medium-Term

Investment Program (MTIP). The reorganization may

include introduction of agency operations manuals.

All staffs would be oriented not only in its use but

also in relevant procurement, government accounting

management, audit, evaluation and reporting systems.

c. Establishment of a regional budgeting and budget

management system. The regional budgeting and

budget management system, designed under the

BTA, will be established in close coordination with

the Central Government’s Department of Budget and

Management. The IFPB and the Cabinet will review the

system before approval. The Policy Development Team

members responsible for the scheme may provide

inputs for the review and approval process. The new

system will result in the preparation and review MTEF-

MTIP, which will dovetail with regional plans. The

new budget system will include a process to enable

the Bangsamoro Government and its constituent LGUs

to access funding for region-identified priority projects

from national agencies.

d. Enactment of an administrative code. The Parliament

is expected to support this basic and important

piece of regional legislation. The concerned Policy

Development Team member could shepherd the

process of approval. As discussed earlier, the Policy

Development Team would have to work with both the

Parliament and the Cabinet to see the draft law pass.

e. Enactment of a law on Shari’ah justice. Similarly,

the Parliament is expected to support this important

legislation. The Policy Development Team could assist

the Parliament and the Cabinet in drafting the bill.

f. Implementation of capability-building plan. A unit

will be established that will focus on providing human

resource development services to the different line

and support agencies of the regional government. It

will be responsible for implementing a capability-

building plan.

g. Forming and operationalization of intergovernmental

bodies. The six intergovernmental bodies pertaining to

governance, mentioned earlier, will be the following,

in order of priority:

i. Intergovernmental Relations Body (from interim to

permanent)

ii. Intergovernmental Fiscal Policy Board (from

interim to permanent)

iii. Congress-Parliament Bangsamoro Forum

iv. Intergovernmental Sustainable Development Body

v. Shari’ah Supervisory Board

vi. Joint Body for the Zones of Joint Cooperation

C.3.3.2. Systems to Support the Realization of Fiscal Autonomy are Installed

The key activities to meet this target will include:

a. Organizing the IFPB or converting its status from an

interim organ under the BTA to a permanent organ of

the Bangsamoro Government;

b. A new regional revenue law is passed;

c. Enforcing specific guidelines on the release of

the annual block grant and other fund transfers from the

Central Government;

d. Establishing a system of collecting regional taxes and

fees;


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e. Passing a law establishing a Shari’ah Supervisory Board

to promote Islamic banking; and

f. Setting guidelines on access to credit financing and use

of alternative financing modes such as public-private

partnership, bond issuance, and others.

i. Organizing the Intergovernmental Fiscal Policy

Board (IFPB). The IFPB is a strategic body necessary

for sustaining fiscal autonomy. It could be envisaged

as the equivalent of a regional Department of

Finance. The Cabinet, led by the Chief Minister, will

be responsible for its formal creation, although an

interim IFPB may be needed to help guide studies

pertaining to fiscal autonomy and secure the SDF. A

Policy Development Team may assist the Cabinet in

planning out its establishment.

ii. Enacting a new regional revenue law. The Policy

Development Team member assigned to study the

subject may shepherd the process of running the draft

through the IFPB, the Cabinet, and the Parliament.

The law could include guidelines pertaining

to remittance of shares from internal revenue

collections, income from natural resource extraction,

incomes of government corporations from operations

in the region, and other sources. These will cover

operational guidelines to be followed by the

Bureau of Internal Revenue (BIR) in withholding the

Bangsamoro Government’s share of internal revenue

collections within the region. Crafting the law will

need inputs from relevant national government

offices such as the BIR, the Bureau of Customs, the

Department of Environment and Natural Resources,

and others.

iii. Setting guidelines on use of block grant and other

fund transfers from the Central Government. The

CT4T and the Policy Development Team could

work with the Intergovernmental Relations Body

in setting specific guidelines on the release of the

block grant and other fund transfers from the Central

Government, as provided for in the BBL and the FAB

Annex on Revenue Sources and Wealth Sharing.

Similar to the revenue law, crafting this piece of

legislation will need intergovernmental intervention.

iv. Establishing systems for collecting regional taxes

and fees. The regional government will continue

to rely mainly on its constituent LGUs to collect

regional impositions. To avoid the confusion

that characterized the past system, better defined

arrangements between LGUs and the Bangsamoro

Government will have to be made.

v. Establishing a Fiduciary Supervisory Board. There

is need for more banks in the region to facilitate

access to credit, promote savings, and keep

financial transactions secure. The third is critical

to the region’s governance system because many

LGUs are forced to stick to manual systems of fund

management in the absence of banks. The Policy

Development Team could help the Cabinet draft

legislation establishing this board. The task will

include undertaking a policy-focused study on the

regional government’s position on the Al-Amanah

Islamic Investment Bank of the Philippines and the

Southern Philippines Development Authority.

vi. Formulating and disseminating guidelines on credit

financing and use of other modes of financing.

Such guidelines will be important at an early stage

to assure the financial community that a policy

framework for developing a regional financial sector

is already being studied.

C.3.3.3. The Campaign to Reform Constituent LGUs Begins

The BTA, with assistance from the Policy Development

Team, shall have developed a reform plan for defining

the Bangsamoro Government’s relationship with local

governments. That plan will be subject of review by the

Cabinet and the Parliament. Among the concerns that

will need to be addressed are: (a) that two laws on local

governments are in effect; (b) corruption and patronage;


126

(c) proliferation of unqualified appointees; (d) monitoring

of performance in the delivery of public services; (e)

action to be taken on municipalities that receive no

allotments from the national budget; (f) greater civil

society engagement in local governance; and (g) the

issue of “orphaned LGUs” arising from their choice to

join the Bangsamoro.

Among the actions expected under this reform agenda

are: (a) decision on Muslim Mindanao Act (MMA) 25,143

with the possibility of enacting a new regional law on

local governments; (b) implementation of an extensive

campaign to emulate the good and shame the bad local

government leaders, and encourage the public to use

current reforms (such as the Full-Disclosure Policy) to

expose malpractices through the media or by networking

with national civil society watchdog organizations;

(c) pressing for greater oversight by the Civil Service

Commission over personnel selection and appointments;

(d) standardization of cash management procedure and

reporting, procurement, asset management, and third

party monitoring of both nationally and locally funded

projects; and (e) broader participation of the citizenry in

monitoring the activities of LGUs.

D. Promoting Shari’ah JusticeShari’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 under-

resourced, 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-

state justice mechanisms and through separate judiciaries

run by the MILF, which includes all aspects of the law,

including commercial transactions and criminal justice.

Expansion of the jurisdiction of the government Shari’ah

courts to cover commercial and criminal law was

authorized under the ARMM Organic Act (Republic

Act 9054). However, the relevant enabling legislation

was never adopted by the ARMM Regional Legislative

Assembly.

However, an expanded recognition of Shari’ah has

also been accommodated in the CAB and in the draft

BBL, which stipulates that the Shari’ah courts in the

Bangsamoro shall have jurisdiction over Shari’ah law

enacted by the Bangsamoro Parliament pertaining to

“persons and family relations, and other civil law matters,

commercial law, and criminal law.”

On top of the existing District and Circuit Shari’ah Courts,

the draft BBL proposes to establish a Bangsamoro Shari’ah

High Court that would exercise final and executory

authority over matters of Shari’ah; a Shari’ah Public

Assistance Office; a Shari’ah Special Prosecution Service;

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


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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.

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 short-

term 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


128

could include working through NGOs, religious leaders,

and regular community meetings through development

projects.

E. Strengthening Fiscal Autonomy in the BangsamoroThe 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.

The Bangsamoro Government will have to pass additional

internal 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 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

tax payments and revenue-generating expenditures of their

employees.

Enhancing fiscal autonomy will require judicious use of

government funds. Expenditures will need to be targeted

on activities that will promote greater economic efficiency

and growth, reduce the incidence of poverty, and improve

the human development indicators of the populace.

Transparency and accountability mechanisms will need to

be built to uphold the accountability of local officials in

the use of public funds. Participation of CSOs and ordinary

citizens would need to be encouraged in the workings of

the government. In the past, much of scarce public funds

were captured by rent-seeking officials, which resulted in

poor or absent basic services and in worsening poverty.

Significant deposits of mineral and non-mineral resources

have been reported in the BCT. If properly developed,

the extractive industry can provide huge revenue sources

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

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 DevelopmentPeace, security, and development are fundamental

aspirations of everyone in the Bangsamoro. The CAB,

together with the Annex on Normalization, provides

the platform for new institutional arrangements that will

ensure that communities affected by the decades-long

armed conflict in Mindanao can return to a peaceful life

and pursue economic activities and sustainable livelihoods

free from fear of violence and insecurity.

Upon its establishment, the Bangsamoro Transition

Authority (BTA) shall assist and support normalization and

development in the Bangsamoro.


129

The Joint Normalization Committee (JNC) shall continue

to coordinate the normalization process with the BTA as

partner until the signing of an exit agreement.

G. Summary of Priority ProgramsA summary of the priority plans and programs for the

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.


130

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.

NOTES

C H A P T E R 13Proposed Implementation Arrangements and Financial Modalities

131

13Proposed Implementation

Arrangements andFinancial Modalities


132

The experience of the ARMM shows that well-planned

interventions with significant financial support from

the Central Government and ODA partners are not

enough to deliver stability and prosperity in the absence

of strong, transparent, and inclusive implementation

arrangements. While the technical recommendations

lay out a framework for stabilization and socioeconomic

recovery of the Bangsamoro, the ability of the

Bangsamoro Government to deliver lasting change rests

on the institutional arrangements and processes for

implementation.

A. General PrinciplesThe 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

of the BTA to assume all the devolved powers of the

Bangsamoro upon its establishment.

The establishment of the Bangsamoro Government will

see a transition from Central Government-led delivery

to full ownership by the Bangsamoro, initially through

the BTA and eventually through the Bangsamoro

Government. The implementation arrangements of

the BDP therefore need to remain flexible to account

for the mandate of the BTA to design the institutional

structure for the Bangsamoro Government. Until

the establishment of the BTA, existing Bangsamoro

institutions, including the BDA and the BLMI, will work

closely with Central Government agencies and ARMM

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 ArrangementsArticle XVI, Section 7 of the proposed BBL states that an

Interim Cabinet shall be created under the BTA. It shall

Proposed Implementation Arrangements and Financial Modalities13


133

be composed of 10 primary offices, with sub-offices for

matters covered and priority ministries, as follows:

1. Governance—in charge of budget and finance,

accountability, and such similar or other related

matters

2. Social Services—in charge of social welfare, and

such similar or other related matters

3. Development—in charge of transportation and

communications, regional investments, trade and

industry, agriculture, forestry and environment,

urban and rural development, and such similar or

other related matters

4. Education

5. Public Order and Safety

6. Indigenous Peoples Affairs

7. Health

8. Public Works

9. Local Government

10. Finance

The BTA may empower the interim Chief Minister to

create other ministries and primary offices, upon a

determination of the majority of its members that these

are necessary for achieving the twin goals of continuity of

social services and transitioning to the regular Bangsamoro

Government.

Recognizing these guiding principles, and in the spirit of

a partnership, the proposed institutional arrangements

for delivering development projects during the transition

period is presented in Figure 32.

It is envisioned that two funding mechanisms will be

created to support the transition: The Bangsamoro

Trust Fund, and a Normalization Fund. Given the

highly intertwined needs of the combatants and their

communities and that of the Bangsamoro as a whole,

it is imperative that socioeconomic and development

assistance be closely coordinated to produce a synergistic

impact on the overall welfare of the Bangsamoro people.

Figure 32: Proposed Implementation Arrangements

Source: BDP-CPT


134

Close coordination between the JNC and the BTC/

BTA will be forged during the transition period. A

Coordinating Body for Development (CBD) will

be established to regulate the administration and

coordination of socioeconomic interventions in the

Bangsamoro during the transition.

The CBD will set policy directions, strengthen linkages

between the Bangsamoro Government and national

government agencies, and ensure the alignment and

strategic complementation of development programs with

the BDP and BDF. The head of the BTC/BTA will chair

the CBD with suitable representation from the national

and ARMM governments, the BDA and the BLMI, the

Third Party Monitoring Team, the International Contact

Group, civil society, private sector, and international

development partners, subject to agreement of the

parties.

A technical committee should be formed to support the

operations of the CBD, communicate socioeconomic

development in the Bangsamoro, and oversee the

monitoring and evaluation of the plan.

Bangsamoro-led institutions, such as the BDA and the

BLMI, will lead the implementation in collaboration

with relevant national and regional government

counterpart agencies, specialized Bangsamoro agencies,

and development partners as appropriate. Civil society

will play a critical role in bottom-up accountability of

financing and results.

A Results-based Monitoring and Evaluation (RbM&E)

body will be created to ensure full transparency,

accountability, and efficiency of delivery. Ministry-

specific RbM&E units may also be lodged with the

different Bangsamoro-led implementing institutions. Each

ministerial unit will be directly accountable to the overall

RbM&E body.

It is important that the transition from the ARMM to

the BTA and to the Bangsamoro Government proceeds

as smoothly as possible to guarantee uninterrupted

provision of basic services to the Bangsamoro people.

There is also the added challenge of accelerating the

provision of these services, considering the need to

narrow the huge development gaps between the BCT

and the other regions of the country. Combined with

the shortage of personnel in the BCT who are assigned

to deliver these basic services, there will be a need to

introduce innovative institutional arrangements, on

an ad hoc basis for two to three years, until existing

ministries within the BTA and the Bangsamoro

Government are adequately capacitated.

Task forces can be created to provide specific services

(i.e., provision of safe water, immunization of infants

and children, conduct of adult literacy programs,

etc.) and reporting directly to a CBD composed of

representatives of the Bangsamoro, national government

agencies, and development partners.

Outsourcing of such services to INGOs, local NGOs, or

reputable institutions specializing in the needed service

is recommended to ensure that service delivery is run

by capable and professional staff who can quickly

deliver the service, particularly during the transition

period.

C. Relationships with Key Partners

C.1. Phase I (From 2015 to Mid-2016)

C.1.1. Relationship with ARMM

Since the ARG’s mandate, structures, and budget

allocation under the General Appropriations Act

will cease only upon installation of the BTA,

close coordination among the ARMM, the Central

Government, and Bangsamoro institutions will be

imperative to ensure uninterrupted delivery of basic

services and the accelerated implementation of

development projects in the Bangsamoro area. Existing

development programs under the ARMM for FY 2014

and FY 2015 are accordingly factored into the BDP.


135

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

(see Figure 32) with the transitional bodies under the

normalization process, including the Joint Normalization

Committee (JNC) and the task force mandated to oversee

the socioeconomic development of the six identified MILF

camps. This shall further guarantee the balance of short-

term confidence-building peace dividend requirements

with medium- and long-term development goals.

C.1.3. Relationship with Private Sector Investors

In recognition of the private sector’s role in developing

sustainable livelihood opportunities, private-public

partnerships and other methods of encouraging the active

engagement of the business sector in the Bangsamoro’s

economic transformation will be promoted.

C.2. Phase II (From Mid-2016 to 2019)

Upon dissolution of the BTA and election of the

Bangsamoro Government in mid-2016, implementation

functions shall be transferred to the relevant ministries of

the Bangsamoro.

To support the vision of a self-reliant Bangsamoro, an

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

capacity in regular organs of the Bangsamoro government.

This may be formulated in conjunction with the GPH and

MILF Panels and the Third Party Monitoring Team (TPMT),

as a possible contribution to the socioeconomic aspects

of the Exit Agreement upon the full implementation of

the CAB, the signing of which shall signal the official

termination of the peace negotiations between the GPH

and the MILF.

Further delineation of the Bangsamoro’s continuing

relationship with Central Government in the conduct

of socioeconomic activities may be discussed by the

intergovernmental relations mechanism.

D. Role of Community Leaders and OrganizersFor reforms in the Bangsamoro to be introduced

effectively, the impetus for change from the top will

need to be complemented by contributions from local

communities, especially in critical areas. Capacity-

building and participatory engagement at the local

level will be necessary to rebuild social cohesion and

set the foundations for rule of law, transparency, and

accountability mechanisms to promote good governance

and sustainable development.

Community-Driven Development (CDD) and Community-

Driven Reconstruction (CDR), as in the MTF-RDP and

the ARMM Social Fund, have proven to be effective

methods of promoting community participation in the

implementation of development projects in impoverished

and conflict-affected areas in Mindanao. They promote

a participatory process in identification, selection and

implementation of projects, strengthen social cohesion,

and promote transparency and accountability. The

networks of community organizers and facilitators from

current and previous CDD programs in Mindanao can be

leveraged to encourage continued community feedback

into the development planning process and as field based

monitors of effective implementation.

E. Training and Strategic ResearchWhile the BDA is experienced in the implementation of

CDD/CDR through the MTF-RDP, the BLMI, by the very

nature of the organization, should specialize in training

potential leaders of the Bangsamoro in “operational

excellence” (i.e., managing and implementing

development projects).

A separate body may also serve as a Bangsamoro

“think tank,” or policy and strategic research unit, to

tackle policy and strategic issues that will confront the


136

Bangsamoro Government and to provide the policy

position for various Bangsamoro units in dialoguing with

their national agency counterparts. Local organizations

currently engaging in this arena include the Institute of

Bangsamoro Studies (IBS) and the Bangsamoro Study

Group (BSG). Both have demonstrated marked capacity,

but will require various additional specialists (i.e., in

economics, agriculture and agribusiness, statistics and

econometrics, fiscal management, etc.) in their rosters.

F. Possible Financing ModalitiesGiven 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 CAB specifies three special funding mechanisms

to be established and implemented by the transition

government:

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;

2. Special Development Fund (SDF), a specified

amount for rehabilitation and development after the

ratification of the BBL; and

3. Normalization Trust Fund, 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 capacity-

building, institutional strengthening, and economic

facilitation for return to normal life affecting

combatant and noncombatant elements of the MILF

and their communities, and the Bangsamoro People.”

Despite the variety of modalities and platforms available—

each with a different goal, timeframe, decision-making

process, funding stream, and risk metric—it is imperative

that the overall funding and aid management architecture

reflects the spirit and intent of the Agreement, in honoring

the partnership between the GPH and the MILF, while

allowing for the Bangsamoro’s leadership and continuous

capacitation as it prepares for autonomous governance.

Another key challenge is to use these various funding

platforms, regardless of the funding source, in pursuit of

a unified, coherent, and well-coordinated strategic agenda

to rebuild the Bangsamoro, with maximum transparency,

speed, efficiency, and accountability.

The following sections recommend funding options as

applicable to Phase I and Phase II implementation.

F.1. Phase I (From 2015 to Mid-2016)

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.

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

funds for special development programs such as

PAMANA;

c. Multi-donor trust fund(s) with an inclusive

governance structure146 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

In light of the Aquino administration’s policy of

heavy peacebuilding investments, as in the case of

the ARMM-TISP and PAMANA, it is expected that the

Central Government will retain significant funding and

operational responsibilities until the BTA is in place,

particularly for normalization.


137

For FY 2015, realignment of existing fund sources, including

development programming under the ARMM Regional

Government, is a likely “bridge” scenario until the formal

SDF is set as provided for by BBL and mobilized through

the General Appropriations Act.

Given the nature of post-conflict reconstruction and

rehabilitation, however, budget lines will need to be

fungible and quick-disbursing, with built-in flexibilities given

that final programming will be based on extensive needs

assessments as provided for by the CAB. Such flexibilities

would be crucial in meeting community expectations and

restoring confidence. Lengthy delays due to bureaucratic

disbursement processes would need to be avoided at all

costs, without sacrificing good public financial management

practices.

F.1.2. Private Sector Investment

It is expected that the public sector will play a crucial role in

job creation and provision of social safety nets until private-

sector investments come in. However, as stated in earlier

sections, public works programs and cash-for-work schemes

will not be enough, and efforts will need to be made

to encourage private investments to generate extensive

income earning opportunities even as the transition is still

in progress.

F.1.3. Official Development Assistance (ODA)

A wide variety of ODA-funded programs are currently

programmed for the ARMM and the transition.

Some, such as the MTF-RDP, the WB-UN Facility for

Advisory Support for Transition Capacities (FASTRAC),

and JICA’s Comprehensive Capacity Development

Project (CCDP) are geared to support the technical

requirements of the GPH-MILF peace process, while

others, such as the Australian-funded Basic Education

Assistance in Mindanao (BEAM-ARMM), Japan-Bangsamoro

Initiatives for Reconstruction and Development (J-BIRD),

JICA’s Mindanao Sustainable Agrarian and Agriculture

Development Project (MINSAAD), Italian Assistance to

the Agrarian Reform Community Development Support

Program (IARCDSP), and the World Bank’s Philippine

Rural Development Program (PRDP) are designed for

sector-specific socioeconomic interventions. Where

relevant and appropriate, ODA partners should consider

how to align their existing programs with the BDP.

F.1.4. Multi-Donor Trust Funds

Experience shows that fund-pooling mechanisms, in

the form of multi-donor trust funds (MDTFs) are central

to efficient and coordinated ODA support in post-

conflict financing environments. MDTFs have proven

to be important instruments for policy dialogue and risk

management, and can provide a platform for effective

resource mobilization and broad participation around

the BDP.

Similarly, the use of MDTFs can ensure predictability

and flexibility of financing, streamline Bangsamoro and

national government coordination with contributing

donors, and lower transaction costs to ensure that more

funding support is channeled to development projects

instead of administrative and fiduciary costs.

More than one MDTF may also be created, tailored

to specific technical requirements. The Bangsamoro

Normalization Trust Fund as provided for in the CAB,

for example, can be complemented by a longer-term

facility for broad development needs. Alternatively, a

broader facility with a common governance structure

can be established with multiple windows addressing

the different financing needs for the various programs.

F.1.5. Bilateral Arrangements

While consolidation of funding around an MDTF or

similar coordinating platforms is preferred, this is likely

to be supported by bilateral or other kinds of pooled

assistance for specific sectoral needs. This can range

from direct-execution type of arrangements to channel-

funding through UN agencies and NGOs. Budget

support to the BTA may also be encouraged, pending

the setup of sound financial management systems and

ground-level delivery mechanisms. Although working


138

through national institutions is initially slower than

direct execution by international agencies, it offers

greater prospects for sustainable outcomes. In all cases,

maintaining coherence to the BDP’s agenda would be

paramount to ensure maximum strategic impact and

avoid fragmentation.

F.2. Phase II (From Mid-2016 to 2019)

Once the Bangsamoro Government comes to power

in mid-2016, the Bangsamoro block grant as provided

for in the BBL will be disbursed to the parliamentary

government for its direct control. While SDF and

other established modalities will remain in place, the

Bangsamoro will need to confront issues of internal fiscal

management, both on how revenue is raised and how

expenditures are implemented.

Another challenge will be continuing to attract large

and sustained inflows of international aid in Phase II

and beyond. As in typical post-conflict scenarios, the

Bangsamoro is likely to attract substantial investments

during the transition period, but will need to lock in

donor commitment on the basis of the perceived or

attained quality of economic policies, institutions, and

governance.

If peace and stability is secured in the Bangsamoro,

it is anticipated that there will be significant private

sector interest in locating their operations in the area.

Vast areas of fertile lands and expansive coastal strips

in geographically advantageous locations protected

from the ill-effects of climate change, benefitting from

rich deposits of mineral and non-mineral resources,

and inhabited by relatively skilled workers provide

strong incentives for the private sector to participate

in the region’s economic growth efforts. Given the

huge capital, knowhow and technology in the hands

of the private sector, they will play a leading role

in promoting the growth and development of the

Bangsamoro economy.

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.

NOTES

C H A P T E R 14Challenges and Mitigating Measures

139

Challenges andMitigating Measures

14


140

Though of critical importance to ensuring stability and

normalization over the short and the medium term, the

BDP as a development plan is constrained in delving

deep into the political, administrative, and security

aspects of the peace process. However, the CAB and

its Annexes provide for establishment of a number

of institutions specifically mandated to address these

concerns. This chapter calls attention to these non-

socioeconomic issues and offers possible mitigation

measures for consideration by these institutions. The

following political, administrative, and security concerns,

among others, will need the immediate attention of the

Bangsamoro decision-makers, Central Government

officials, donors, and other peace stakeholders.

a. Security Problems in Bangsamoro Core Territory.

The results of the CVEs in BCT reveal growing

lawlessness in the island provinces and in Central

Mindanao, such as in the case of kidnap-for-

ransom activities and drug trafficking. Most of the

incidents have remained unreported. The residents

have identified this situation as a major source of

insecurity and violence that make life extremely

difficult for ordinary citizens. The Bangsamoro

Government and the Bangsamoro regional police

force will need to counter the operations of these

criminal groups. A fragile law and order situation

would make development projects difficult to

undertake. Where there will be progress and

lessons learned in countering these criminal groups,

a monitoring system could be put in place so

replication programs could be undertaken in other

areas.

b. Land Disputes. These have caused many violent

conflicts and are keenly felt particularly in Lanao

del Norte, Lanao del Sur, North Cotabato, and parts

of Maguindanao. There is need for a dedicated body

to address these, and for pertinent empirical studies.

A Bangsamoro land use map could be developed to

help protect watersheds and to promote judicious

use of lands, given that increased interest in mining

is anticipated, which would generate employment

and revenues.

c. Need for Inclusivity. Inclusivity is needed at

various levels, such as in: (a) decision-making so

that various stakeholders will be involved and

besides the Bangsamoro, will be encouraged to

participate actively and genuinely in the process;

(b) recruitment of Bangsamoro Government staff, so

that competence will be the foremost consideration,

regardless of ethnic, religious and group affiliation;

and (c) distribution of “peace dividends” among

the various stakeholders, to avoid perception of

favoritism or patronage.

d. Need for a Clearer Definition of the Working

Relationships between Bangsamoro Government

and LGUs. The latter are needed for effective and

efficient delivery of basic services to communities.

This is also necessary because, unlike LGUs outside

Challenges andMitigating Measures14

C H A P T E R 14Challenges and Mitigating Measures

141

of ARMM which are mandated/expected to deliver

services to their constituents and for which the IRA

(internal revenue allocation) is provided for by the

national government, LGUs in the ARMM are not

mandated to provide these services in view of MMA

No. 25, passed by the ARMM Regional Assembly in

1995. The result is that LGUs in the ARMM use their

IRAs based on identified priorities by local officials

rather than prioritizing delivery of basic services to

their constituents since MMA 25 had the effect of

assigning that primordial function to the regional

government.

e. People’s Expectations. The signing of the FAB and its

Annexes and of the CAB has raised high expectations

among the Bangsamoro people that stability will be

immediately attained and that there will be quick

and drastic improvement in their lives. Post-conflict

experience worldwide show hindrances in the

path of any peace process. It includes bureaucratic

administrative processes of governments and donor

partners that slow down the delivery of development

projects. These rising expectations, therefore, should

be managed properly by leaders on both sides of the

peace process.

f. Time Constraints. The short timeframe for the transfer

of powers and responsibilities from the ARMM to the

Bangsamoro Government presents risks in managing

expectations and ensuring uninterrupted delivery

of basic services. This is aggravated by the delay in

the passage of the BBL. Once the BBL is approved,

preparation will be underway for a plebiscite

within 120 days. With time needed to canvass

votes, officially declare areas under the jurisdiction

of the BCT, and formally appoint BTA members,

the BTA may be officially established in late 2015

at the earliest. The BTA will have barely three to

four months to deliver expected peace dividends

before the start of the campaign period for the 2016

national elections.

g. Manpower Shortage. Many of the region’s

highly qualified people have left because of

the protracted conflict. Without them, the

Bangsamoro Government may find it difficult to

govern effectively. This urgent issue will need

to be addressed in the transition period to ensure

immediate delivery of results.

A “Balik-Bangsamoro” program is included as a

priority in the BDP to address capacity inadequacy

in activities requiring high technical competency.

However, it will likely create an incentive

imbalance among Bangsamoro professionals. The

Bangsamoro Government would have to assure

its constituents that this incentive imbalance is

a necessary but temporary measure for ensuring

delivery of peace dividends, while the capacity of

young Bangsamoro professionals is being built to

take the reins of leadership in the immediate future.


142

C H A P T E R 15Results-Based Monitoring and Evaluation Framework

143

Results-based Monitoringand Evaluation Framework

15


144

Results-based Monitoring and Evaluation (RbM&E) is an

essential component of this Plan. It describes a system

that will track the performance, results, and quality, as

well as evaluate the outcomes and impacts of programs

and projects identified in the BDP during the transition,

on a periodic basis. The BDP-RbM&E system will be

useful for effective programming and strategic planning

while it supports transparency for accountability

to the Bangsamoro constituency. With systematic

collection and analysis of relevant data, the findings and

recommendations that will come out of the RbM&E will

inform policy making for the Bangsamoro, based on hard

evidence.

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

strong understanding of performance of development

programs and projects in the region. It will document

lessons learned in the implementation of recommendations

and programs, which will be useful for future planning

beyond the transition period.

Apart from the RbM&E, the BDP will also explore other

participatory and mixed methods in evaluation. It is

important that evaluation for social change demonstrate a

connection from results-based to learning based evaluation.

The BDP is aimed at ensuring that the evaluation process

will facilitate the capacity of the Bangsamoro to become

learning-based communities as an integral part of

sustainable human development.

A. ObjectivesThe 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 improve the implementation of

development programs and projects in the

Bangsamoro;

Results-based Monitoringand Evaluation Framework15

C H A P T E R 15Results-Based Monitoring and Evaluation Framework

145

4. Build capacity of relevant agencies in the

Bangsamoro to implement RbM&E effectively; and

5. Support transparency for greater accountability

to the public using “Open Data” as anchor of the

BDP-RbM&E.

B. Guiding PrinciplesThe BDP RbM&E shall adhere to the following guiding

principles:

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 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 problem-

solving-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.

3. Evidence-Based. The RbM&E will track and validate

outcomes and performance against desired results.

It will also document attainment, any departure

from attaining the results, and the justifications for

achievement or non-achievement. The assessment

will be done on a periodic basis. A rigorous and in-

depth assessment will be undertaken to gauge the

impact of BDP programs of interventions to target and

non-target communities. Evidence will be obtained

through systematic data collection and validation,

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


146

and the lessons learned experienced by the ARMM

in M&E will be essential for the Bangsamoro.

The RbM&E will engage the community in the

collection and validation of relevant data to foster

social accountability.

7. Independence. The RbM&E Body must be an

independent unit directly accountable to the BTA

or the Office of the Chief Minister to maintain

its integrity in carrying out its monitoring and

evaluation functions. Every Bangsamoro-led

implementing institution will have an RbM&E unit,

and each unit will be directly accountable to the

BDP RbM&E Body.

8. Coordination. The RbM&E Body will closely

coordinate with the small RbM&E units and the

various implementing agencies, through the CBD,

for building the database and for monitoring. With

established capacity in M&E, various national line

agencies—including NEDA, PSA, and the statistical

units of functional national line agencies—have

accumulated a wealth of best practices and lessons

that the BDP RbM&E Body could use. Coordination

with the ARMM on establishing baseline data shall

also be conducted during the transition period.

9. Inclusiveness. All data will be disaggregated by

gender, sex and, where possible, other social

classifications relevant to the unique social

landscape of the Bangsamoro, such as ethnicity and

religion, to ensure inclusiveness.

Annex G (Results-Based Monitoring & Evaluation

Framework) provides details on the BDP RbM&E

Framework, including its scope, logical framework and

initial list of indicators to be monitored.

A N N E X E S

147

Annexes

Annexes


148


A. Economy and Livelihood

Increasing farm productivity and income

Assisting in ensuring food security particularly to vulnerable groups

Increasing halal-certified producers and service providers

Bangsamoro Sustainable Agriculture Program

• 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

Higher labor force participation (especially for inactive youth)

Higher household income

Bridging the labor supply gap

Massive Job Creation Packages, including Creative Service Delivery

• 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

Bringing back human and financial capital from overseas

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 (including Shari’ah-compliant finance)• Study on promoting the development of Islamic banking and finance

Support for long-term fiscal autonomy and development (for medium- to long-term measurement)

Peace Tourism: It’s Even More Fun in the Bangsamoro

• Scoping for eco-, cultural, and resort tourism (Central Mindanao, Tawi-Tawi)• 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 the extractive industry.

ANNEX A: BDP Priority Programs

A N N E X E S

149


B. Infrastructure

Increase volume of passengers and goods, road density

Strengthening the Bangsamoro Infrastructure and Logistics

System

• 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

Increase household access to electricity

Energy • 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

Enhance capacity of Bangsamoro communities to adapt to climate change and undertake DRRM for social justice and to mitigate displacement

CCA/DRRM-Responsive Infrastructure

• Ambal-Simuay River Flood Control• Slope Protection• Creating and maintaining partnerships with local communities for watershed protection and rehabilitation programs

C. Social Services

Increase household access to WaSH

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 • Provision of PhilHealth cards• Mass immunization and feeding programs• Health caravans• Upgrading of health facilities• Creative delivery mechanisms: mainstreaming of BIAF medics, traditional healers

Improve access to quality education and reduce risk of conflict reversal, toward creating a skilled and able workforce in the Bangsamoro

Education • 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


150


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

To preserve the ecological integrity of the Bangsamoro in the context of comprehensive sustainable development

Environmental Governance • 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 communities’ adaptive 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 E X E S

151


E. Culture and Identity

Assist communities to identify and preserve their cultural resources, traditions, values, practices

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 a Bangsamoro Peace Memorial Museum

Establish and strengthen cultural institutions to protect, conserve, nurture, and promote Bangsamoro’s tangible and intangible cultural heritage

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

Promote creation and sustainability of local culture, heritage, and art groups through various forms of incentive assistance

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

F. Governance and Justice

Support for Transitional Bodies • As provided for in the CAB and BBL

Support for the BBL and the 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 in 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 improving access to justice, including the Shari’ah justice system in the Bangsamoro

Fiscal Autonomy • Reform of GOCCs, regional economic policy development, etc.


152

The BDP Project Steering Committee (PSC) provided the

overall leadership through provision of oversight and

technical guidance in the formulation of the Bangsamoro

Development Plan (BDP). A Core Planning Team (CPT)

served as the secretariat of the PSC and concurrently

acted as the project management unit. The BDP Advisory

Council provided technical advice and other assistance

to the formulation of the BDP, including facilitating

access to the CPT and the Cluster Teams in the conduct

of their duties/responsibilities and field activities.

Overall support was provided by the World Bank-

managed Mindanao Trust Fund-Rehabilitation and

Development Program (MTF-RDP) and all its

donor partners—the European Union; Australia’s

Department of Foreign Affairs and Trade;

Canada’s Department of Foreign Affairs, Trade

and Development; New Zealand’s Ministry of

Foreign Affairs and Trade, the Swedish International

Development Agency; and the United States Agency

for International Development—in collaboration

with the Japan International Cooperation Agency,

the United Nations, the Asian Development Bank,

the Asia Foundation, the Foundation for Economic

Freedom, and the International Organization for

Migration.

ANNEX B: BDP Governance Structure

Name Designation Organization

Dr. Saffrullah M. Dipatuan Chairperson Bangsamoro Development Agency (BDA)

Usec. Luisito G. Montalbo Executive Director Office of the Presidential Adviser on the Peace Process (OPAPP)

Uz. Mohammad S. Yacob, PhD Executive Director Bangsamoro Development Agency (BDA)

Ustadz Abdulkadir K. Abdullah Member, Board of Directors Bangsamoro Development Agency (BDA)

Usec. Margarita Songco Deputy Director-General National Economic Development Authority (NEDA)

Dir. Baintan A. Ampatuan Executive Director Autonomous Region in Muslim Mindanao Regional Planning and Development Office (ARMM RPDO)

Mr. Motoo Konishi Country Director The World Bank in the Philippines

Mr. Matthew James Keir Stephens 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 30: BDP Project Steering Committee


Mr. Jamel D. Macaraya Member, Board of Directors Bangsamoro Development Agency (BDA)

Hadji Hashim S. Casinto Member, Board of Directors Bangsamoro Development Agency (BDA)

Ustadz Abusaliha M. Macacuna Member, Board of Directors Bangsamoro Development Agency (BDA)

Ustadz Mohamad Taha U. Abdulgapor Member, Board of Directors Bangsamoro Development Agency (BDA)

Mr. Urooj S. Malik, PhD Senior Advisor Bangsamoro Development Agency (BDA)

Ms. Ayesah U. Abubakar, PhD Senior Advisor Bangsamoro Development Agency (BDA)

Engr. Nasser G. Sinarimbo Management Consultant Bangsamoro Development Agency (BDA)

Table 31: BDP Advisory Council

A N N E X E S

153


Dr. Saffrullah M. Dipatuan Chairman BDA Board of Directors

Dr. Rizaldy L. Piang Member BDA Board of Directors

Hadji Taupiq Alagasi Member BDA Board of Directors

Hadji Hashim S. Casinto Member BDA Board of Directors

Mr. Jamel D. Macaraya Member BDA Board of Directors

Ustadz Abusaliha M. Macacuna Member BDA Board of Directors

Mr. Rhadzni M. Taalim Member BDA Board of Directors

Atty. Almanzor B. Taug Member BDA Board of Directors

Hadji Mohamad B. Salih Member BDA Board of Directors

Ustadz Mohamad Taha U. Abdulgapor Member BDA Board of Directors

Ustadz Abdulkadir K. Abdullah Member BDA Board of Directors

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


Engr. Windel P. Diangcalan Team Leader Bangsamoro Development Agency (BDA)

Mr. Beñamine B. Ubpon Member Bangsamoro Development Agency (BDA)

Mr. Rhadzni M. Taalim Member Bangsamoro Development Agency (BDA)

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 Japan International Cooperation Agency (JICA)-Philippines

Ms. Diolina Mercado Member Japan International Cooperation Agency (JICA)-Philippines

Table 32: BDP Joint Review Committee

Table 33: BDP Core Planning 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.


154


Mr. Abdulmannan L. Gayak, PhD Economy Bangsamoro Development Agency (BDA)

Ms. Minang D. Sharief, PhD Social Bangsamoro Development Agency (BDA)

Mr. Zainal D. Kulidtod, PhD Politics Bangsamoro Development Agency (BDA)

Mr. Guimba B. Poingan, PhD Culture Bangsamoro Development Agency (BDA)

Mr. Abdul S. Pagayao, PhD Security Bangsamoro Development Agency (BDA)

Mr. Abdul-Jalil S. Umngan Environment and Natural Resources

Bangsamoro Development Agency (BDA)

Ms. Zarah Kathleen T. Alih Gender, Youth and other Vulnerable Groups


Mr. Ismael G. Kulat Peacebuilding Bangsamoro Development Agency (BDA)

Mr. Acram O. Latiph, PhD Fiscal Autonomy Bangsamoro Development Agency (BDA)


Mr. Mohammad Abdulfarid M. DelnaInformation, Communication

and Learning Officer (January–August)


Mr. Misuari G. AbdulmanapInformation, Communication

and Learning Officer (September–Present)


Mr. Anwar S. Abdullah Finance Officer Bangsamoro Development Agency (BDA)

Mr. Ismael S. Mamokan, Jr. Geographic Information System Officer


Ms. Almirah O. Arba Administrative Assistant (January-May)


Ms. Sarah G. Panglima Administrative Assistant (June–Present)


Ms. Faridiah A. Bandar Finance Assistant Bangsamoro Development Agency (BDA)

Mr. Aliuddin U. Haron TWG Team Leader Bangsamoro Development Agency (BDA)

Mr. Candao G. Alang Cashier Bangsamoro Development Agency (BDA)

Engr. Mohammad Saud Alon Research Associate Bangsamoro Development Agency (BDA)

Mr. Jordan M. Juanday Research Assistant II Bangsamoro Development Agency (BDA)

Ms. Nishreen Y. Hashim Research Assistant Bangsamoro Development Agency (BDA)

Ms. Moniesa S. Husain Administrative Support Staff Bangsamoro Development Agency (BDA)

Table 34: Thematic Area Focal Persons

Table 35: BDP Support Team

A N N E X E S

155

Name Organization Thematic Area Sub-Theme

Mr. Luisito Uy Philkoei International, Inc./Japan International Cooperation Agency (JICA)

Economy Agriculture, Fisheries and Agro-Industry

Ms. Rizalyn Vale International Labor Organization (ILO) Economy Economy and Livelihood

Mr. Rolando A. Torres UN Food and Agriculture Organization (FAO) Economy Economy and Livelihood

Ms. Marilen J. Danguilan 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 Foundation for Economic Freedom (FEF)/Mindanao Trust Fund

Economy Halal Industry

Mr. Ikram Tawasil Foundation for Economic Freedom (FEF)/Mindanao Trust Fund

Economy Islamic Finance

Ms. Suj Ronquillo, PhD Asian Development Bank (ADB) Economy Regional Cooperation

Mr. Joselito Supangco Philkoei International, Inc./Japan International Cooperation Agency (JICA)

Economy 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 WaSH

Mr. Juan Ragrario The Asia Foundation Governance

Mr. Hamid A. Barra, PhD United Nations Development Programme (UNDP)

Governance Shari’ah Justice System

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

Ms. Maribel Dato Philkoei International, Inc./Japan International Cooperation Agency (JICA)


Natural Resources (including Mines and Extractive Minerals)

Mr. Emmanuel Bate Philkoei International, Inc./Japan International Cooperation Agency (JICA)


Power

Mr. Jemuel Perino Philkoei International, Inc./Japan International Cooperation Agency (JICA)


Disaster Risk Reduction Management and Watershed Management

Ms. Amelia Dulce Supetran United Nations Development Programme (UNDP)


Mr. Benjamin Bagadion United Nations Development Programme (UNDP)


Mr. Eduardo Queblatin United Nations Development Programme (UNDP)


Forests and Watersheds

Table 36: Thematic Area Consultants


156

Name Organization Thematic Area Sub-Theme

Mr. Francis BenitoUnited Nations Development Programme

(UNDP)Environment and Natural Resources

Convention and Nonconventional (Renewable) Energy and Climate Change Mitigation

Ms. Noela Lasmarias United Nations Development Programme (UNDP)


Ecological Services

Mr. Jacob Tio United Nations Development Programme (UNDP)


Hazard, Risk and Emergency Response and Urban Ecosystems Management

Mr. Ronaldo Gutierrez United Nations Development Programme (UNDP)


Climate Change Adaptation

Ms. Nerissa Juan United Nations Development Programme (UNDP)


Ecotourism

Ms. Amy Lecciones United Nations Development Programme (UNDP)


Biodiversity Protection and Conservation

Mr. Moner Bajunaid, PhD International Organization on Migration (IOM)

Cross-cutting Gender and Development

Ms. Indai Lourdes Sajor UN Women Cross-cutting Gender and Women

Ms. Soraya Ututalum The World Bank Communications Consultant

Ms. Pam Clavio-Galenzoga The World Bank GIS

Mr. John Christian Castillo The World Bank Creative Designer

Ms. Johanna Go SRDP / JICA GIS

Ms. Claire Reyes SRDP / JICA GIS

Mr. Adelino Racusa The World Bank Data Management

Mr. Jamaile A. Edsa International Organization on Migration (IOM)

Technical Working Group

Mr. Nurhadi K. Guiam International Organization on Migration (IOM)


Mr. An-Nur H. Haron International Organization on Migration (IOM)


Engr. Usman Kamid International Organization on Migration (IOM)



Mr. Howard B. Cafugauan Assistant Secretary OPAPP

Mr. Arvin Chua Director OPAPP

Ms. Prisci Val Bulanhagui Office of the Executive Director OPAPP

Mr. Max Africa Office of the Executive Director OPAPP

Ms. Kristine Wee GPH-MILF Panel OPAPP

Ms. Vanessa Estrano Office of the Executive Director OPAPP

Ms. Rosemarie G. Edillon Assistant Director-General NEDA

Mr. Jonathan Uy Director IV NEDA

Table 37: National Government Agencies

A N N E X E S

157


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

Ms. Fresi Araneta Senior Economic Development Specialist NEDA

Ms. Dinna Manlangit SREDS NEDA

Ms. Maria Lourdes Lopez SREDS NEDA

Ms. Cherryl B. Tienzo SREDS NEDA

Ms. Susan Valerio OIC- Assistant Director NEDA Region 9

Ms. Maria Pilar C. Dagayanon Senior EDS NEDA Region 9

Mr. Francisco T. Varela Undersecretary for Finance and Administration DepEd

Mr. Roger Masapol 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

Mr. Camilo Gudmalin Assistant Secretary for Visayas and Mindanao ClusterDeputy Project Director, KALAHI-CIDSS

DSWD

Ms. Vilma Cabrera Assistant Secretary DSWD

Ms. Janet Lopoz Executive Director MinDA

Mr. Reyzaldy B. Tan Director IV, Policy, Planning and Project Development Office MinDA

Mr. Carlos Ceresa Technical Staff MinDA

Mr. Dimas Soguilon Assistant Secretary for Regional Operations in Visayas and Mindanao DPWH

Mr. Abdul Fatak Pandapatan Project Manager IV of the Project Management Office (PMO) DPWH

Dr. Romulo Busuego, MD Assistant Secretary for the Mindanao Area Cluster DOH

Dr. Venancio Ang, MD Medical Specialist II (Technical staff for Bangsamoro Task Force) DOH

Mr. Roger Masapol Chief, Planning and Programming Division DepEd

Mr. Earl Saavedra Commissioner Representing Mindanao NYC

Mr. Mel Santilla Jr. PSO VI NYC

Mr. Alvin Alcid Division Chief NHCP


158


Atty. Laisa Alamia Executive Secretary Office of the Executive Secretary

Engr. Mlang Madal Assistant Director Regional Planning Division Office (RPDO)

Ms. Norolhaya Mamarion-Haron Planning Officer III Regional Planning Division Office (RPDO)

Ms. Melanie M. Indar Project Officer V Regional Planning Division Office (RPDO)

Atty. Macmod Mending Regional Secretary Department of Agriculture and Fisheries (DAF)

Mr. Alexander Alonto, Jr. Assistant Secretary Department of Agriculture and Fisheries (DAF)

Mr. Macmod D. Mamalangkap RFRDC Manager Department of Agriculture and Fisheries (DAF)

Ms. Ramla Macatabang Gender and Development Coordinator

Department of Agriculture and Fisheries (DAF)

Mr. Kalunsian Dimalen Chief Operation Division Department of Agriculture and Fisheries (DAF)

Ms. Manioba M. Domaot Planning Officer Bureau of Fisheries and Aquatic Resources (BFAR)

Ms. Ruby Andong Senior TESD Specialist 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 Department of Trade and Industry (DTI)

Ms. Susana Y.S. Anayatin, PhD Chief Technical Managament Services

Department of Trade and Industry (DTI)

Ms. Sarah Mamdra Senior Trade and Industry Development Specialist

Department of Trade and Industry (DTI)

Mr. Larzon G. Santos Chief Investment Specialist on Research

Regional Board of Investments (RBOI)

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)

Dr. Tato Usman Medical Specialist III Department of Health (DOH)

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 Office of the Southern Cultural Communities (OSCC)

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)

Mr. Pendatun Mambatawan Assistant Director IV Department of Agrarian Reform (DAR)

Mr. Mohammad M. Galo Chief Information Officer Department of Transportation and Communication (DOTC)

Mr. Muslimin A. Jakilan Regional Secretary Department of Labor and Employment (DOLE)

Table 38: ARMM Line Agencies

A N N E X E S

159

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, ICT-driven, 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, sustainably-managed 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 pro-people, transparent, and accountable leadership.”

STRATEGIES/GOALS

The objectives of the President’s Guideposts and the PDP have been translated to five Key Result Areas (KRAs) under Executive Order 43, as follows:

1. Transparent, accountable, and participatory governance

2. Poverty reduction and empowerment of the poor and vulnerable

3. Rapid, inclusive, and sustained economic growth

4. Just and lasting peace and the rule of law 5. Integrity of the environment and climate

change adaptation and mitigation

• Strengthening of economic and physical linkages

• Upgrading of Mindanao’s human resource capabilities

• Peace and social inclusiveness

• Good governance, broad peoples’ participation and strong public-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.

ANNEX C: Relevant National and Regional Development Plans


160

A. The Community Visioning Exercises: Methodology and Results

A.1. Background/Rationale

The Bangsamoro Development Plan (BDP) provides

short- and medium-term vision and strategies for the

recovery and development of the Bangsamoro area. This

Plan will cover the transition period of 2015 to 2016

and includes recommendations for the years beyond.

The process was designed to be inclusive of all major

stakeholders as well as grassroots 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

the needs of the communities. While formulation of

the comprehensive plan was Bangsamoro-led, experts

and consultants in various fields (Bangsamoro and

non-Bangsamoro) were invited to contribute to the

development planning.

A.2. Objectives

The overall goal of the CVEs was to define the kind

of society the Bangsamoro would like to pursue

in the future as an expression of their right to self-

determination. Specifically, the exercise sought to:

a. Determine problem areas and/or sources of

dissatisfaction/grievances in the communities, their

causes and possible solutions;

b. Identify the needs and define the aspirations of the

Bangsamoro for their envisioned society; and

c. Determine projects and programs that would

respond to these needs in the transition from 2015

to 2016.

A.3. Participants

Participants in the CVEs included community leaders

(formal and informal), farmers/fishers, women, IPs, and

settlers, who represented communities in low-lying and

upland areas. Efforts were undertaken to give adequate

representation to women and to MNLF and other groups.

A.4. Methodology

The one-day CVEs mainly involved group discussions,

workshop exercises, and deepening inputs. The

participants were asked to respond to the following

questions:

a. What is their vision of a Bangsamoro society? (A

general description of the society they want)

b. What issues adversely affect their communities?

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?

A.5. Program Design and Activities

After the preliminaries, the participants were reminded of

the history of the Bangsamoro struggle, from the time of

the Sultanate-led resistance to the present. This included

the timeline of the peace negotiations that resulted in

the incremental successes of the GRP-MNLF Tripoli

Agreement, the 1996 Final Peace Agreement (FPA), and

the GPH-MILF peace talks that culminated in the signing

of Comprehensive Agreement on the Bangsamoro (CAB).

The brief historical account enabled the participants to

understand the important stakeholder interests in the

Bangsamoro struggle. It was emphasized that the two

agreements (GRP-MNLF, the 1996 FPA, and the CAB)

were conflicting but supplementary.

An explanation of the importance of the Bangsamoro

Basic Law (BBL), the Bangsamoro Transition Authority

(BTA), and the BDP was done to give the participants a

background for defining their vision of the Bangsamoro.

Participants also identified present issues and concerns

that adversely affected their lives, their pressing needs and

aspirations, and how these needs might be addressed.

ANNEX D: Clamor from the Ground

A N N E X E S

161

A.7. Consolidation of Outputs

Based on an analysis by the BDP Core Planning Team,

the outputs were classified into six broad themes: (a)

economy; (b) social; (c) governance; (d) environment;

(e) culture and identity; and (f) security. While a certain

amount of nuancing was evident in the outputs across

the provinces in the Bangsamoro, reflective of the

cultural diversity, the overall messages, as described in

Chapter 5, provided useful framework for the BDP.

Date Coverage (Provinces) Location Participants

4 February 2014 Maguindanao, Sultan Kudarat, Cotabato City

Estosan Garden Hotel, Cotabato City 37

10 February 2014 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 Estosan Garden Hotel, Cotabato City 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

28 February 2014 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 2014Davao 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

5 April 2014 Maguindanao Mangudadatu Gym, South Upi 323

4 February 2014 Maguindanao, Sultan Kudarat, Cotabato City

Estosan Garden Hotel, Cotabato City 37

TOTAL 859

A.6. Schedule of CVEs, Venues Held, and Participants


162

B. Community Validation Exercises

B.1. Rationale

Part of the BDP formulation was the validation and

consolidation of development interventions identified

from the different activities conducted by the BDP

Core Planning Team and development partners. This

validation was conducted through intensive activities

from the ground up to the national stakeholders and

partners.

B.2. Objectives

The general objective of the validation was to

inform and formulate appreciation from the different

stakeholders regarding the content of the formulated

BDP. Further comments and suggestions were gathered

and integrated in the draft thereafter. Specifically, the

validation aimed to:

a. Identify needed development interventions;

b. Identify specific areas and locations for programs

and projects; and

c. Prioritize proposed programs and projects based

on the requirements.

B.3 Participants

The participants of the Community Validation (CV)

included members of some of the communities engaged

during the CVEs conducted across the proposed

Bangsamoro core territories and adjacent areas. They

represented the student and youth sector, political

committees, MILF line agencies in the community,

indigenous peoples (IPs), Bangsamoro Islamic Armed

Forces (BIAF), Moro National Liberation Front (MNLF),

local government units (LGUs), Christians, and included

tribal and traditional leaders.

B.4. Methodology

The CV was a one-day exercise that included group

discussions and workshops, and involved deepening

of inputs. The participants responded to the following

questions:

a. What are the top priority projects to be implemented

in their respective areas?

b. Where specificually should the programs and

projects (e.g., one project for whole municipality) be

done?

c. What would be the estimated cost of the proposed

programs and projects?


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

B.5. Schedule of Community Validations, Venues Held, Participants

A N N E X E S

163


7 August 2014 Lanao del Sur Butig 59

8 August 2014 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



15 September 2014 Zamboanga del Norte Sirawai 80

16 September 2014 Zamboanga del Norte, Zamboanga Sibugay

Ipil 100

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

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

Mindanao Civil Society Organizations Platform for Peace

(MCSOPP) to conduct community engagements and

consultations in the drafting of the BBL. The main objectives

of conducting public engagements and consultations were

to:

a. Promote transparency, inclusiveness, and active

participation of the local stakeholders to generate

massive public support and ownership of the BBL;

b. Set a machinery for public engagement and multi-

stakeholder participation within the proposed core

territory of the Bangsamoro, the target expansion areas,

and pertinent regions in Luzon and Visayas; and

c. Broaden the constituency for establishment of the

Bangsamoro.

As a loose organization of civil society organizations

across the Bangsamoro, the MCSOPP had a large

geographical coverage for conducting community

consultations. Over 100 of these were conducted from

December 2013 to April 2014. While the engagement

was primarily targeted around the political and

institutional development process of establishing the

Bangsamoro Government, community engagements also

revealed other concerns of stakeholder communities.


164

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

• 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

C.2. Cross-Validation with Community Visioning Exercise Outputs

A rapid analysis of the consolidated outputs by the BDP

Core Planning Team revealed significant overlapping of

the aspirations, priorities, and sources of dissatisfaction

uncovered by the CVEs. This confirmed the BDP framework,

anchored in the CVE and the current situational analysis,

as appropriate to address the socio-economic and other

development concerns of communities in the Bangsamoro.

Table 39 presents an overview of the MCSOPP outputs as a

reference for comparison with the CVE results.

Table 39: Overview of MCSOPP Consultation Outputs

A N N E X E S

165

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 Western-

education 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


166

Rank 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

ANNEX E: Poorest Provinces and Municipalities in the Philippines

Table 40: Ranking of Poverty Incidence in the Philippines, by Province (2006, 2009, and 2012)

A N N E X E S

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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


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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

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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

Table 41: 100 Poorest Municipalities and Cities in the Philippines (2006 and 2009)


170


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

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59 Aloguinsan Cebu 61.69 Malitbog Bukidnon 61.42

60 Pandag Maguindanao 61.60 Buldon Maguindanao 61.13

61 Godod Zamboanga Del Norte 60.91 Datu Anggal Midtimbang Maguindanao 61.07

62 Hadji Panglima Tahil (Marunggas)

Sulu 60.90 Jipapad Eastern Samar 60.58

63 Bunawan Agusan Del Sur 60.82 Mangudadatu Maguindanao 60.28

64 San Francisco Cebu 60.66 Magsaysay (Linugos) Misamis Oriental 60.27

65 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


172


91 Jovellar Albay 58.32 Caraga Davao Oriental 58.00

92 Sindangan Zamboanga Del Norte 58.22 Ginatilan Cebu 57.96

93 Bucloc Abra 58.04 Talacogon Agusan Del Sur 57.95

94 Trinidad Bohol 57.93 Mamasapano Maguindanao 57.89

95 Maslog Eastern Samar 57.81 Mutia Zamboanga Del Norte 57.82

96 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

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Province ICCs / IPs* Population** (2010) Municipalities with IP Population Municipalities/Cities

Lanao del Sur 1. Abelling2. Abiyan3. Aeta4. Atta5. Batak6. Batangan7. Binukid8. Higaonon9. Ibanag10. Ivatan11. Kankanai12. Manobo13. Tagakaolo14. Tiruray

4,893

1. Balindong2. Balabagan3. Bayang4. Binidayan5. Budaiposo-buntong6. Bubong7. Bumbaran8. Butig9. Lumba-Bayabao

10. Maguing11. Malabang12. Marantao13. Marawi City14. Marugong15. Masiu16. Piagapo17. Taraka18. Tagoloan II19. Tugaya20. Wao

Maguindanao 1. Abelling2. Abiyan3. Badjao, Sama Dilaut4. Batak5. Batangan6. B’laan7. Binukid8. Higaonon9. Ibanag10. Ikalahan11. Ilongot12. Kankanai13. Kolibugan14. Malaueg15. Mamanwa16. Mandaya17. Manobo18. Mansaka19. Subanen20. T’boli21. Teduray22. Tinggian23. Tiruray

55,841

1. Ampatuan2. Barira3. Buldon4. Datu Odin Sinsuat5. Datu Paglas6. Gen K. S. Pendatun7. Kabuntalan8. Pagagawan9. Pagalungan10. Parang11. South Upi12. Sultan Kudarat13. Sultan Sa Barongis14. Talayan15. Upi

Sulu 1. Abeling2. Abiyan3. Atta4. Badjao, Sama Dilaut5. Balangao6. Cimaron7. Ibanag8. Kanakanai9. Manobo

16,472

1. Kalingan Caluang2. Indanan3. Lugus4. Maimbong5. Pandami6. Pangutaran7. Parang8. Siasi9. Talipao10. Tapul11. Tongkil

12. Old Panamao13. Panglima Estino14. Pata15. Patikul

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


174

Province ICCs / IPs* Population** (2010) Municipalities with IP Population Municipalities/ Cities

Tawi-Tawi 1. Abelling2. Aeta3. Badjao, Sama Dilaut4. Ibanag5. Kankanai6. Manobo7. Sama Bangenge8. Sama Dilaya

123,783

1. Sibutu (16)2. Simunul (15)3. Sitangkai (9)4. South Ubian (31)5. Tandubas (20)6. Sapa-sapa (23)

7. Mapun (15)8. Languyan (3)9. Panglima Sugala (5)10. Turtle Island (2)11. Bongao (10)

Basilan 1. Abeling2. Abiyan3. Badjao, Sama Dilaut4. Binukid5. Ibanag6. Illanun/Llanuan7. Kankanai8. Kolibugan9. Manobo10. Sama Dilaya11. Subanen

5,772

1. Lamitan2. Lantawan3. Maluso4. Tabuan Lasa5. Tipo-Tipo6. Sumisip

Lanao del Norte 1. Abelling2. Ibanag3. Kankanai

1721. Baloi2. Pantar

North Cotabato 1. Abelling2. Abiyan3. Bagobo4. B’lann5. Ibanag6. Ilongot7. Kanakanai8. Mamanwa9. Manobo10. Tiruray

10,908

1. Aleosan2. Carmen3. Kabacan4. Midsayap5. Pigkawayan6. Pikit

Isabela City 1. Abelling2. Badjao, Sama Dilaut3. Ibanag4. Ilanun5. Kankanai6. Subanen

3,020 Isabela City

Cotabato City 1. Batangan2. Ibanag3. Ilongot4. Kankanai5. Malueg6. Mamanwa7. Manobo8. Teduray9. Tiruray

2,138 Cotabato City

Total 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.

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175

The following are proposed institutional conditions

for effective and efficient RbM&E implementation of

the recommendations contained in the Bangsamoro

Development Plan (BDP).

A. Operationalizing the BDP RbM&E SystemTo 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 Elements1. Inventory of Information Needs. A listing of

the information needs of relevant oversight and

functional departments of the Central Government,

the BTA, and other organizations supporting the

BDP initiatives vis-à-vis their M&E responsibilities

will be necessary when the Bangsamoro Basic

Law (BBL) has taken effect. Clustered by the

six strategic themes of the BDP, the inventory

will provide better and informed decision-

making to these agencies/organizations/groups.

2. Logical Framework. See Tables 44, 45, and 46 for

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

access and welfare of various social groups within

the Bangsamoro. All unit/agency staff responsible

for RbM&E in the BTA may undergo training in data

collection, validation, analysis, and reporting. Critical

coordination with government and nongovernment

organizations involved in M&E (e.g., the ARMM’s

“Open Data”) will be essential to complementing and

building on initial efforts at data building and analysis.

ANNEX G: Results-based Monitoring and Evaluation Framework

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

Table 43: Proposed Implementation Arrangements for RbM&E


176

4. Baseline. It is highly imperative for the RbM&E

Body, in coordination with its units, to conduct

a rapid assessment/appraisal survey in the

Bangsamoro region to establish the baseline

with which the performance and progress of

various interventions in the thematic and strategic

areas will be compared, from the transition

period through to 2022. Ideally, the rollout of

the baseline survey shall take place once the

Bangsamoro geographic scope is finalized based

on the outcome of the BBL plebiscite. Operational

planning for the baseline survey can be done

beginning 2015. The baseline data in Table 45 will

be updated or revised to align with the incumbent

geographic scope to indicators (ARMM) with the

outcomes of the BBL plebiscite.

5. The critical steps in making a rigorous impact

evaluation is to delineate control and determine

treated/intervention groups or areas, alongside

establish the baseline figures based on a

well thought-out evaluation plan before any

development intervention in areas of interest.

6. Review Meetings. The RbM&E Body and its

component units in the various Bangsamoro-led

implementing agencies will conduct periodic

review meetings to facilitate the learning process.

In coordination with the Coordinating Body for

Development and the implementing agencies,

the RbM&E Body shall establish a mechanism to

process the outputs of the learning process and

to use the learning outputs as inputs to influence

policy dialogues, based on demand.

7. Reporting. The BDP RbM&E adopts three types

of reporting: (a) monthly progress reports on

achievements in the six strategic themes, including

the flagship programs; (b) yearly progress reports

on achievements in the six strategic themes, with

the highlights of best practices, in relation to the

overall goal of building the foundations of a just

economy that will strengthen institutions, promote

more equitable access to economic opportunities,

citizen security and justice; and (c) quarterly datasheets

on relevant indicators based on demand.

8. Capacity Needs. Staff, including field workers, who

will be involved in the implementation of RbM&E will

need to undergo training and capacity-development on

data gathering, data validation, data analysis, results or

performance evaluation, data management, as well as

reporting/communication, to ensure that they dispense

their functions and responsibilities efficiently and

effectively.

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

mixed methods because the programs and projects

will be undertaken in the context of the complex

and fluid social, historical, economic, political,

and organizational settings of the Bangsamoro, and

emphasize the consultative process. The RbM&E Body

shall prepare guidelines on the structure of evaluation

and evaluation reports.

The performance, results, and impact of BDP programs

and projects will be evaluated according to the

following criteria:

a. Impact. Has the BDP attained the targets of the

specific activities, projects, programs implemented,

as identified in the six strategic themes? What are

the intended and unintended impacts, both positive

and negative, of all the elements of the BDP? Is the

intervention logic robust and logical?

b. Relevance and Appropriateness. Do the objectives,

themes, priorities, and approaches specified in

the BDP have direct links to establishing a “just

economy”? Are the interventions and activities

relevant given the development challenges in

Bangsamoro? Are the specific interventions aligned

A N N E X E S

177

with the Plan?

c. Effectiveness. To what extent have the strategies

and objectives of the BDP been achieved? Have

the targets been achieved in a timely fashion? What

major factors have influenced the achievement

or non-achievement of the objectives? Are the

specific BDP interventions targeted based on the

most appropriate needs and demand, to achieve

the greatest impact? Do the expenditure patterns

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, non-

Bangsamoro, settlers, vulnerable groups, such as

persons who are differently abled, youth, senior

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

BDP?

g. Lessons Learned. What intervention practices in

the BDP work best and what do not prove to be

effective?

10. Commitment. Firm commitment of implementing

agencies for program and project results and impact

monitoring, as well as efficiency in monitoring and

evaluation.

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.


178

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 44: Overall Goal and Strategies of the BDP

Table 45: Logical Framework Matrix

Sector Strategy Goals Outcomes Outputs Baseline Targets

1. Economy and Livelihood

a. Increase productivity

b. Increase number of halal-certified producers and service providers

c. Higher labor force participation

d. Higher household income

e. Bridge labor supply gap

f. Bring back out-migrated human and fiscal capital

g. Trade openness

h. Improve access to credit

• Increased utilization of arable land

• Increased production • Improve land productivity• Increase labor productivity

(particularly in agriculture)• Increased number of

registered enterprises• Increased number of halal

certified establishments• Improved farming and

fishing practices• Lower underemployment

rates• Higher labor participation

rates• Higher GDP per capita• Higher household incomes• Stable prices • Lower transaction costs

for farmers from farm to market

• More skilled workforce• Development of camps• Recommendations based

on the completed studies

• 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 scaled-up 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 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)

• TBD

A N N E X E S

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• 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

• Bangsamoro Fund Facility• Microcredit (including

Shari’ah-compliant finance)• Scoping for eco-, cultural and

resort tourism • Support infrastructure• Developing of geological

database• Analysis for institutional

and capacity development requirements for management and regulation of extractive industries

• Total bank loans (as 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

• TBD

2. Infrastructure

a. Increase volume of people and goods, road density

b. Increase household access to electricity

c. Enhance Bangsamoro communities’ adaptive capacity for climate 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’ access to electricity

• Reduced power interruptions

• Reduced population displaced by calamities

• Improved and paved roads and bridges (FMRs), upgrading of airports and seaports

• Development of a transport and logistics master plan, including detailed engineering design and study

• Use of river network of the BCT as alternative and low-cost 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, ARMM: 58.1%

(FIES, 2012)

• % of households with access to electricity:

60-65% (end-2016) 70-75% (end-2022)


180


• 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

b. Increase access to quality health services and reduce risk of conflict reversal

c. Improve access to quality education and reduce risk of conflict reversal, toward creating a skilled and able workforce in the Bangsamoro

d. Increase % of population with secure housing tenure

e. Provide safety nets and increase access to services for vulnerable groups

• Increased households with access to basic services (e.g., access to water, sanitation, and health facilities)

• Increased households with higher education

• Increased participation in primary and secondary education

• Increased adult and youth literacy

• Increased population with high technical skills

• Increased households with insurance coverage

• Increase the share of fully immunized children

• Increased utilization of formal health facilities and professional health services

• Increase the number of households with secure housing tenure

• Recommendations based on the completed studies

• 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 non-LET 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

• 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)

• % of households with access to safe water, ARMM: 36.6% (2012)

• % of households with 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)

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• 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.

• % 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 sustainable development

b. Enhanced adaptive capacity for climate 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

• Recommendations based on the results of the completed pilot activities

• Recommendations based 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

• Comprehensive framework 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


182


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

• 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 culturally-responsive development initiatives

• Comprehensive framework and operational guidelines for heritage, culture and the arts, indigenous sports and games, music, visual arts, literature, 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 in ARMM = 0.85 (where 0 = perfectly homogenous, 1 = perfectly heterogenous)

• Ethnic Fragmentation Index = 0.85 to 1.0 (perfectly heterogenous)

A N N E X E S

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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

• Recommendations based on the completed policy studies

• More LGUs with DILG Seal of Good Housekeeping

• 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 ARMM with SGH = 6.6% (2013)

• % of LGUs in Bangsamoro with SGH = 20% (2016)


184

Table 46: Indicators to Monitor and Evaluate

Strategy Goal Indicators Outcome Indicators Output Indicators Data Gathering Tools/Methods

1. Economy and Livelihood

a. Improved agricultural land and labor productivity• agriculture output

per labor employed• agriculture output

per hectare• average household

income

b. Increase number of halal-certified producers and service 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 out-migrated human and fiscal capital

g. Trade openness

h. Improve access to credit

• % 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 halal-certified 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

• Bangsamoro Fund Facility• Geological database

• Onsite monitoring visit and interview

• Monitoring report form• Third party monitoring• Field survey• GIS-assisted mapping

A N N E X E S

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2. Infrastructure

a. Increase volume of passengers and goods, road density

b. Increase household access to electricity

c. Enhance Bangsamoro communities’ adaptive capacity for climate change and DRRM for social justice and to mitigate displacement

• 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 low-cost 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


• Infrastructure quality survey assessment

• Third party monitoring


186


3. Social Services

a. Increase household access to WaSH

b. Increase access to quality health services and reduce risk of conflict reversal

c. Improve access to quality education and reduce risk of conflict reversal, toward creating a skilled and able workforce in the Bangsamoro

d. Increase % of population with secure housing tenure

e. Provide safety nets and increase access to services for vulnerable groups

• Share of households with access to clean water

• Share of households with access to sanitary toilets

• Share of households with college graduate members

• Participation rates in primary and secondary education

• Literacy rates• Share of skilled population • Share of households with

insurance coverage• Share of fully immunized children• Utilization of formal health

facilities and professional health services

• Share of households with secure housing tenure

• Recommendations based on the completed studies

• 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.


• FGDs• Monitoring report form• Third party monitoring• Field survey• GIS-assisted mapping

A N N E X E S

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4. Environment and Natural Resources

a. Improved protection of forest resources, coastal marine resources, and bio-diversity• % 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 disaster-preparedness 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• Onsite monitoring visit and

interview• FGDs• GIS-assisted mapping

survey• Rapid biodiversity

assessment survey• Third party monitoring


188


5. Culture and Identity

a. Preservation and promotion of culture and identity of the Bangsamoro and other groups in the Bangsamoro

• Number of initiatives approved and implemented for preservation and promotion of culture and identity of the Bangsamoro and other groups in the Bangsamoro

• Distribution (number and expenditure) of initiatives on culture and identity preservation, according to ethno-linguistic or social groups (Bangsamoro and settlers)

b. Strengthened cultural institutions to protect, conserve, nurture, and promote tangible and intangible cultural heritage of various social groups in Bangsamoro

• Number of cultural institutions, both government and nongovernment, engaged in protection, nurture, and promotion of tangible and intangible cultural heritage

• Number of programs, projects, administrative orders approved and implemented by government cultural institutions for 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

• Ethnic diversity index• Part of population

knowledgeable in Bangsamoro including IP identity and struggles

• Number of visible and tangible activities that promote cultural heritage and the arts

• Number of institutions engaged in cultural tourism

• Number of civil society groups (and their geographical distribution) that support and promote cultural tourism

• Number and amount of investments related to public-private partnerships on cultural tourism

• Number of establishments, amount of investments

• Number of employees of and geographical distribution of establishments engaged in cultural tourism

• Number of mainstreamed culturally responsive development initiatives, and geographic distribution (halal industry, Shari’ah courts and IP dispute resolution system, madrasah and IP education, etc.)

• 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• Monitoring report form• Third party monitoring

A N N E X E S

189


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 performance-based budgeting

• Frequency, by agency and program level, of engagements with civil society groups on budgeting or planning

f. Improved budget management

• Number of institutions and agencies using performance-based 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

• 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

• Survey• FGDs, interview• Stakeholder analysis• Onsite visit• Third party monitoring


190

BDP Background PapersEconomy and Livelihood

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 Bangsamoro Development Agency.

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 Bangsamoro Development Agency.

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.

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191

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 Bangsamoro Development Agency.

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.


192

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Adriano, Fermin. (2014). “Development Opportunities in the Philippines with the Signing of the Comprehensive Agreement on the Bangsamoro: More Lessons or No Impact?” A paper presentation for the Forum on Development Opportunities of the Comprehensive Agreement on the Bangsamoro. Intercontinental Hotel, Makati, Philippines.

_________________and Thomas Parks. (2013). The Contested Corners of Asia: Subnational Conflict and International Development Assistance, the Case of Mindanao. Manila, Philippines: The Asia Foundation.

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Ateneo School of Government. (2014). “Towards a Transparent and Accountable Formula for the Bangsamoro Block Grant.” An unpublished report commissioned by Oxfam Philippines for the Bangsamoro Transition Commission.

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