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Bangsamoro Development Plan
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Bangsamoro Development Plan
© 2015 by the Bangsamoro Development Agency
All rights reserved. Any part of this book may be used and reproduced, provided proper acknowledgment is made.
Bangsamoro Development Plan
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
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Chapter 7: Economy and Livelihood 39
A. Context: Economic Performance, Poverty, and Livelihood in the Bangsamoro 40
B. Strategic Goals 46
C. Summary of Priority Programs 56
Chapter 8: Infrastructure 59
A. Context: A Fragmented and Overstretched Infrastructure Network 60
B. Strategic Goals 64
C. Summary of Priority Programs 69
Chapter 9: Social Services 71
A. Context: Education, Health, and WaSH in the Bangsamoro 72
B. Strategic Goals 79
C. Summary of Priority Programs 91
Chapter 10: Environment and Natural Resources 93
A. Context: Rich but Fragile Natural Resources and Ecological Heritage 94
B. Strategic Goals 100
C. Strategies 101
D. Summary of Priority Programs 103
Chapter 11: Culture and Identity 105
A. Context: The Diverse Culture in the Bangsamoro 106
B. Strategies 108
C. Summary of Priority Programs 109
Chapter 12: Governance 111
A. Context: Governance Structures and Systems in the Bangsamoro 112
B. Transition Period Phase 114
C. Transition Challenges, Features, and Targets 115
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
128
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
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Bangsamoro Development Plan
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
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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
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Bangsamoro Development Plan
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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Bangsamoro Development Plan
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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Bangsamoro Development Plan
Acknowledgements
In the name of Allah, Most Beneficent, Most Merciful
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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Bangsamoro Development Plan
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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In the name of Allah, Most Beneficent, Most Merciful
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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Bangsamoro Development Plan
• 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.
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2C H A P T E R 1Introduction
1
1Introduction
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Bangsamoro Development Plan
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
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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.
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Bangsamoro Development Plan
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• 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.
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C H A P T E R 2History and Analysis of Conflict in the Bangsamoro
5
2History and Analysis of
Conflict in the Bangsamoro
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Bangsamoro Development Plan
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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
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C H A P T E R 2History and Analysis of Conflict in the Bangsamoro
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.
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Bangsamoro Development Plan
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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)
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C H A P T E R 2History and Analysis of Conflict in the Bangsamoro
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.
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Bangsamoro Development Plan
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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
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C H A P T E R 3Plan Methodology and the Bangsamoro Development Framework
11
3Plan Methodology and the Bangsamoro Development
Framework
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Bangsamoro Development Plan
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
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C H A P T E R 3Plan Methodology and the Bangsamoro Development Framework
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)
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Bangsamoro Development Plan
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).
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C H A P T E R 3Plan Methodology and the Bangsamoro Development Framework
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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.
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Bangsamoro Development Plan
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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
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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
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Bangsamoro Development Plan
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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
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C H A P T E R 4Current Situation, Development Gaps, and Opportunities in the Bangsamoro
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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)
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Bangsamoro Development Plan
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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
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C H A P T E R 4Current Situation, Development Gaps, and Opportunities in the Bangsamoro
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
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Bangsamoro Development Plan
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)
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C H A P T E R 4Current Situation, Development Gaps, and Opportunities in the Bangsamoro
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
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Bangsamoro Development Plan
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
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C H A P T E R 4Current Situation, Development Gaps, and Opportunities in the Bangsamoro
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)
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Bangsamoro Development Plan
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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
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C H A P T E R 5Clamor from the Ground
27
5Clamor from the Ground
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Bangsamoro Development Plan
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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
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C H A P T E R 5Clamor from the Ground
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
Sources of Dissatisfaction Vision and Aspirations 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
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Bangsamoro Development Plan
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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
Sources of Dissatisfaction Vision and Aspirations 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
Sources of Dissatisfaction Vision and Aspirations Priority Programs
Lack of respect for ethnic/religious traditions
Ethnic and interfaith understanding Cultural preservation programs (museums, memorials, parks)
Minimal access to Islamic justice, finance, health, and education facilities
Access to culture-specific social, economic, and governance systems
Construction of culture-specific facilities (prayer rooms, traditional birthing facilities, cemeteries)
Disregard of traditional cultures by the youth
Pride in multi-ethnic background of Bangsamoro
Peacebuilding and cultural education program
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C H A P T E R 5Clamor from the Ground
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
Sources of Dissatisfaction Vision and Aspirations 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
Sources of Dissatisfaction Vision and Aspirations 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.
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Bangsamoro Development Plan
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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
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C H A P T E R 6Strategy and Recommendations
3333
6Strategy and Recommendations
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Bangsamoro Development Plan
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
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C H A P T E R 6Strategy and Recommendations
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
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Bangsamoro Development Plan
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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
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C H A P T E R 6Strategy and Recommendations
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)
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Bangsamoro Development Plan
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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.
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7Economy and Livelihood
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Bangsamoro Development Plan
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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
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C H A P T E R 7Economy and Livelihood
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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
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Bangsamoro Development Plan
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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%
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C H A P T E R 7Economy and Livelihood
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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)
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Bangsamoro Development Plan
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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)
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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)
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Bangsamoro Development Plan
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
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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
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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,
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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;
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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
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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).
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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
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C H A P T E R 7Economy and Livelihood
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—
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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
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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
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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
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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
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C H A P T E R 8Infrastructure
59
8Infrastructure
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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)
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C H A P T E R 8Infrastructure
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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
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Bangsamoro Development Plan
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)
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C H A P T E R 8Infrastructure
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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
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Bangsamoro Development Plan
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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).
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C H A P T E R 8Infrastructure
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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
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Bangsamoro Development Plan
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)
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C H A P T E R 8Infrastructure
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
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Bangsamoro Development Plan
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
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C H A P T E R 8Infrastructure
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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.
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Bangsamoro Development Plan
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Objectives Priority Programs Components
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
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9Social Services
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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)
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Map 9: Barangay Access to Primary Education Facilities and Distribution of Population by Barangay (6–12 Years Old) (2010)
Source: PSA-CPH (2010)
Figure 20: Education Attainment, All Ages (2010)
Note: Mindanao refers to Mindanao excluding ARMM.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)
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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).
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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)
Source: PSA-CPH (2010)
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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)
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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
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Source: PSA-CPH (2010)
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
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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
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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
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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)
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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.
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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
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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
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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.
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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.
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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.
Objectives Priority Programs Components
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
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C H A P T E R 10Environment and Natural Resources
93
10Environment and
Natural Resources
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Bangsamoro Development Plan
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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
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C H A P T E R 10Environment and Natural Resources
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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
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Bangsamoro Development Plan
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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)
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C H A P T E R 10Environment and Natural Resources
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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
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Bangsamoro Development Plan
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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.
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C H A P T E R 10Environment and Natural Resources
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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)
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Bangsamoro Development Plan
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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)
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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.
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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,
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C H A P T E R 10Environment and Natural Resources
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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.
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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*
Objectives Priority Programs Components
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.
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C H A P T E R 11Culture and Identity
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11Culture and Identity
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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
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C H A P T E R 11Culture and Identity
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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)
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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
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C H A P T E R 11Culture and Identity
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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.
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Table 27: Priority Culture and Identity Programs
Objectives Priority Programs Components
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
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C H A P T E R 12Governance
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12Governance
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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
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C H A P T E R 12Governance
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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
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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.
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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.
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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
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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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C H A P T E R 12Governance
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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;
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Bangsamoro Development Plan
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(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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C H A P T E R 12Governance
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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
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Bangsamoro Development Plan
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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.
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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.
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Bangsamoro Development Plan
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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
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C H A P T E R 13Proposed Implementation Arrangements and Financial Modalities
131
13Proposed Implementation
Arrangements andFinancial Modalities
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Bangsamoro Development Plan
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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
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C H A P T E R 13Proposed Implementation Arrangements and Financial Modalities
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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
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Bangsamoro Development Plan
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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.
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C.1.2. Relationship with Normalization Bodies
Section G of the Annex on Normalization stipulates
that “efforts shall be made to align socioeconomic
interventions with the overall Bangsamoro Development
Plan.” As such, the CBD shall establish relationships
(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
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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.
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C H A P T E R 13Proposed Implementation Arrangements and Financial Modalities
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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
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Bangsamoro Development Plan
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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
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C H A P T E R 14Challenges and Mitigating Measures
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Challenges andMitigating Measures
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Bangsamoro Development Plan
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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
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C H A P T E R 14Challenges and Mitigating Measures
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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.
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C H A P T E R 15Results-Based Monitoring and Evaluation Framework
143
Results-based Monitoringand Evaluation Framework
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Bangsamoro Development Plan
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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
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C H A P T E R 15Results-Based Monitoring and Evaluation Framework
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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
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Bangsamoro Development Plan
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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.
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A N N E X E S
147
Annexes
Annexes
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Objectives Priority Programs Components
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
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Objectives Priority Programs Components
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
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Objectives Priority Programs Components
Increase % of population with secure housing tenure
Sustainable Bangsamoro Settlements • Special Housing Needs Assistance Package for IDPs• PPP for socialized housing• Policy reform on land rights, housing tenure security for
economically-displaced Bangsamoro
Provide safety nets and increase access to services for vulnerable groups
Protective Services • Packages for vulnerable groups: senior citizens, PWDs, women, widows, youth, orphans, etc.
D. Environment and Natural Resources
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
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Objectives Priority Programs Components
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.
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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
Name Designation Organization
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
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A N N E X E S
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Name Designation Organization
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
Name Designation Organization
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.
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Name Designation Organization
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
Bangsamoro Development Agency (BDA)
Mr. Ismael G. Kulat Peacebuilding Bangsamoro Development Agency (BDA)
Mr. Acram O. Latiph, PhD Fiscal Autonomy Bangsamoro Development Agency (BDA)
Name Designation Organization
Mr. Mohammad Abdulfarid M. DelnaInformation, Communication
and Learning Officer (January–August)
Bangsamoro Development Agency (BDA)
Mr. Misuari G. AbdulmanapInformation, Communication
and Learning Officer (September–Present)
Bangsamoro Development Agency (BDA)
Mr. Anwar S. Abdullah Finance Officer Bangsamoro Development Agency (BDA)
Mr. Ismael S. Mamokan, Jr. Geographic Information System Officer
Bangsamoro Development Agency (BDA)
Ms. Almirah O. Arba Administrative Assistant (January-May)
Bangsamoro Development Agency (BDA)
Ms. Sarah G. Panglima Administrative Assistant (June–Present)
Bangsamoro Development Agency (BDA)
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
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A N N E X E S
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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)
Environment and Natural Resources
Natural Resources (including Mines and Extractive Minerals)
Mr. Emmanuel Bate Philkoei International, Inc./Japan International Cooperation Agency (JICA)
Environment and Natural Resources
Power
Mr. Jemuel Perino Philkoei International, Inc./Japan International Cooperation Agency (JICA)
Environment and Natural Resources
Disaster Risk Reduction Management and Watershed Management
Ms. Amelia Dulce Supetran United Nations Development Programme (UNDP)
Environment and Natural Resources
Mr. Benjamin Bagadion United Nations Development Programme (UNDP)
Environment and Natural Resources
Mr. Eduardo Queblatin United Nations Development Programme (UNDP)
Environment and Natural Resources
Forests and Watersheds
Table 36: Thematic Area Consultants
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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)
Environment and Natural Resources
Ecological Services
Mr. Jacob Tio United Nations Development Programme (UNDP)
Environment and Natural Resources
Hazard, Risk and Emergency Response and Urban Ecosystems Management
Mr. Ronaldo Gutierrez United Nations Development Programme (UNDP)
Environment and Natural Resources
Climate Change Adaptation
Ms. Nerissa Juan United Nations Development Programme (UNDP)
Environment and Natural Resources
Ecotourism
Ms. Amy Lecciones United Nations Development Programme (UNDP)
Environment and Natural Resources
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)
Technical Working Group
Mr. An-Nur H. Haron International Organization on Migration (IOM)
Technical Working Group
Engr. Usman Kamid International Organization on Migration (IOM)
Technical Working Group
Name Designation Organization
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
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Name Designation Organization
Ms. Remedios Endencia OIC, Director for Regional Development Coordination Unit NEDA
Ms. Mercedita Sombilla Director, Agriculture, Natural Resources and Environment Staff NEDA
Mr. Joseph Capistrano Public Investment Staff, Asia Pacific Division NEDA
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
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Name Designation Organization
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
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A N N E X E S
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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
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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
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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
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Bangsamoro Development Plan
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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?
Date Coverage (Provinces) Location Participants
5 July 2014 Maguindanao, Cotabato City Darapanan, Simuay, Sultan Kudarat 71
7 July 2014 Maguindanao, Sultan Kudarat Kurintem, Datu Odin Sinsuat 59
8 July 2014 Maguindanao, Sultan Kudarat Lambayong, Sultan Kudarat 93
9 July 2014 Bukidnon, Cotabato Manarapan, Carmen 49
10 July 2014 Cotabato, Maguindanao Pagalungan 52
4 August 2014 Lanao del Norte Balo-i 60
5 August 2014 Lanao del Norte Balo-i 71
B.5. Schedule of Community Validations, Venues Held, Participants
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Date Coverage (Provinces) Location Participants
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
21 August 2014 Sulu Notre Dame Learning Center, Jolo 165
22 August 2014 Sulu Notre Dame Learning Center, Jolo 126
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.
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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
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A N N E X E S
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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
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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)
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Rank Province/City 2006 PI Province/City 2009 PI Province/City 2012 PI
31 Catanduanes 41.4 Biliran 39.2 Occidental Mindoro 38.1
32 Sorsogon 41.2 Albay 36.7 Mountain Province 37.6
33 Camarines Norte 41.1 Compostela Valley 36.6 Abra 37.4
34 Lanao del Norte 40.7 Basilan 36.6 Bohol 36.8
35 Sulu 40.7 Leyte 36.3 Compostela Valley 36.7
36 Marinduque 40.5 Oriental Mindoro 36.1 Surigao Del Sur 36.0
37 Western Samar 40.4 Occidental Mindoro 35.9 Agusan del Norte 34.7
38 Basilan 39.0 Tawi-Tawi 35.3 Catanduanes 33.8
39 Leyte 38.4 Cotabato City 34.0 Davao del Norte 33.4
40 Compostela Valley 37.7 Marinduque 33.6 Batanes 33.3
41 Albay 36.4 Negros Oriental 33.2 Marinduque 32.9
42 Palawan 35.2 Ifugao 32.1 Siquijor 32.6
43 Camiguin 34.6 Davao del Norte 32.0 Negros Occidental 32.3
44 Cotabato City 34.4 South Cotabato 31.6 Zamboanga del Sur 32.0
45 Southern Leyte 33.7 Zamboanga del Sur 31.6 South Cotabato 32.0
46 Quezon 33.5 Siquijor 31.0 Antique 30.9
47 Misamis Oriental 32.0 Palawan 30.9 Aurora 30.8
48 South Cotabato 31.7 North Cotabato 30.6 Oriental Mindoro 29.3
49 Davao del Norte 31.7 Negros Occidental 30.4 Camarines Norte 28.7
50 Zamboanga del Sur 31.7 Kalinga 30.1 Tawi-Tawi 28.6
51 North Cotabato 31.4 Nueva Ecija 29.9 Capiz 27.8
52 Aurora 30.5 Quezon 29.8 Quezon 27.5
53 Cebu 30.4 La Union 29.3 Biliran 27.5
54 Capiz 29.9 Catanduanes 29.1 Kalinga 26.8
55 Biliran 29.8 Capiz 29.0 Palawan 26.4
56 Isabela 29.6 Misamis Oriental 28.9 Iloilo 26.2
57 Cagayan 29.6 Isabela 28.9 Guimaras 25.2
58 Pangasinan 28.7 Cagayan 27.8 Nueva Ecija 25.2
59 Negros Occidental 28.2 Isabela City 27.4 Aklan 25.0
60 Ifugao 28 Cebu 26.8 Davao del Sur 24.4
61 Nueva Ecija 26.5 Iloilo 26.6 Isabela 24.4
62 La Union 26.0 Camiguin 25.5 Misamis Oriental 23.4
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Rank Province/City 2006 PI Province/City 2009 PI Province/City 2012 PI
63 Guimaras 25.3 Davao del Sur 24.8 Cebu 22.7
64 Davao del Sur 23.7 Pangasinan 22.3 Isabela City 22.1
65 Zambales 23.6 Guimaras 20.7 Quirino 21.2
66 Siquijor 22.7 Aurora 18.2 Nueva Vizcaya 20.7
67 Iloilo 21.8 Ilocos Sur 18.1 Pangasinan 20.4
68 Ilocos Sur 20.8 Tarlac 17.5 Cagayan 19.7
69 Tarlac 18.1 Zambales 17.3 Batangas 19.0
70 Ilocos Norte 17.7 Batangas 17.1 La Union 18.5
71 Batanes 16.6 Quirino 15.6 Ilocos Sur 17.3
72 Nueva Vizcaya 15.0 Ilocos Norte 14.7 Tarlac 16.6
73 Quirino 14.6 Batanes 14.4 Zambales 16.0
74 Batangas 14.4 Nueva Vizcaya 13.3 Ilocos Norte 9.9
75 Bataan 9.7 Rizal 8.6 Pampanga 7.6
76 Bulacan 7.3 Laguna 8.4 Bulacan 7.3
77 Benguet 5.8 Bataan 7.7 Bataan 7.1
78 Laguna 5.5 Bulacan 6.9 Laguna 6.4
79 1st District* 4.9 Pampanga 6.9 1st District* 6.2
80 2nd District* 4.9 Benguet 6.1 Rizal 6.1
81 3rd District* 4.6 1st District* 5.1 4th District* 4.8
82 4th District* 4.4 3rd District* 4.5 3rd District* 3.8
83 Rizal 3.3 2nd District* 3.3 Benguet 3.7
84 Pampanga 2.7 Cavite 3.2 Cavite 3.4
85 Cavite 1.8 4th District 2.4 2nd District* 2.4
Note: * Refers to the congressional districts of the National Capital Region (NCR). Source: PSA
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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)
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Rank Municipality/City Province 2006 PI Municipality/ City Province 2009 PI
30 Dagohoy Bohol 65.87 Bacungan (Leon T. Postigo)
Zamboanga Del Norte 65.96
31 San Jose Romblon 65.78 Kalawit Zamboanga Del Norte 65.83
32 Sirawai Zamboanga Del Norte 65.47 Sergio Osmeña Sr. Zamboanga Del Norte 65.80
33 Jimalalud Negros Oriental 65.31 Don Victoriano Chiongbian (Don Mariano Marcos)
Misamis Occidental 65.66
34 Basilisa (Rizal) Surigao Del Norte 65.11 Paglat Maguindanao 65.43
35 Santa Fe Cebu 65.02 Silvino Lobos Northern Samar 64.78
36 Kalingalan Caluang Sulu 65.00 San Isidro Bohol 64.01
37 Danao Bohol 64.69 Malita Davao Del Sur 63.82
38 Catigbian Bohol 64.31 Bien Unido Bohol 63.72
39 San Miguel Bohol 64.23 Palimbang Sultan Kudarat 63.68
40 Matuguinao Samar (Western) 64.18 Siocon Zamboanga Del Norte 63.56
41 Bacungan (Leon T. Postigo)
Zamboanga Del Norte 63.93 Madalag Aklan 63.34
42 Tangub City Misamis Occidental 63.82 Payao Zamboanga Sibugay 63.25
43 San Francisco (Aurora)
Quezon 63.51 Sultan Sa Barongis (Lambayong)
Maguindanao 62.89
44 Linapacan Palawan 63.44 Pilar Surigao Del Norte 62.75
45 Jose Dalman (Ponot) Zamboanga Del Norte 63.40 San Benito Surigao Del Norte 62.62
46 Sibagat Agusan Del Sur 63.34 Talaingod Davao Del Norte 62.60
47 Talitay Maguindanao 63.00 Alegria Cebu 62.36
48 Veruela Agusan Del Sur 63.00 Libacao Aklan 62.33
49 Datu Unsay Maguindanao 63.00 Tarragona Davao Oriental 62.31
50 Tineg Abra 62.86 Concepcion Misamis Occidental 62.3
51 Alegria Cebu 62.68 Danao Bohol 62.09
52 Gen. S. K. Pendatun Maguindanao 62.60 Pres. Carlos P. Garcia (Pitogo)
Bohol 62.09
53 Mangudadatu Maguindanao 62.60 Sapad Lanao Del Norte 62.04
54 Paglat Maguindanao 62.40 Sallapadan Abra 62.00
55 Dumaran Palawan 62.24 San Luis Agusan Del Sur 61.99
56 Pilar Bohol 62.15 Esperanza Agusan Del Sur 61.94
57 Sultan Sa Barongis (Lambayong)
Maguindanao 61.80 Sirawai Zamboanga Del Norte 61.66
58 San Pascual Masbate 61.70 Olutanga Zamboanga Sibugay 61.65
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Rank Municipality/City Province 2006 PI Municipality/ City Province 2009 PI
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
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Rank Municipality/City Province 2006 PI Municipality/ City Province 2009 PI
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
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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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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
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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
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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.
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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
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Sector Strategy Goals Outcomes Outputs Baseline Targets
• 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)
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Sector Strategy Goals Outcomes Outputs Baseline Targets
• 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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Sector Strategy Goals Outcomes Outputs Baseline Targets
• 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
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Sector Strategy Goals Outcomes Outputs Baseline Targets
5. Culture and Identity
a. Preservation and promotion of culture and identity of the Bangsamoro and other groups in the Bangsamoro
b. Strengthened cultural institutions to protect, conserve, nurture, and promote Bangsamoro tangible and intangible cultural heritage
c. Established and sustained local culture, heritage, and art groups
• 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)
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Sector Strategy Goals Outcomes Outputs Baseline Targets
6. Governance and Justice
a. Smooth and peaceful transition
b. More efficient public service
c. Strong local and fiscal autonomy
d. Improved institutional and technical capacity
e. Improved public accountability and engagement with the civil society
f. Improved budget management
g. Improved access to justice and legal pluralism
• More competent public servants with the required technical skills
• Uninterrupted provision of basic services
• Reduced patronage and corruption
• Improved generation of local revenues
• Regular M&E reports published
• Improved land governance• Reduction of conflict and
crimes• Greater participation of civil
society and community in decision making, service delivery and monitoring
• 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)
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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
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Strategy Goal Indicators Outcome Indicators Output Indicators Data Gathering Tools/Methods
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
• Onsite monitoring visit and interview
• Infrastructure quality survey assessment
• Third party monitoring
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Strategy Goal Indicators Outcome Indicators Output Indicators Data Gathering Tools/Methods
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.
• Onsite monitoring visit and interview
• FGDs• Monitoring report form• Third party monitoring• Field survey• GIS-assisted mapping
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Strategy Goal Indicators Outcome Indicators Output Indicators Data Gathering Tools/Methods
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
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Strategy Goal Indicators Outcome Indicators Output Indicators Data Gathering Tools/Methods
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
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Strategy Goal Indicators Outcome Indicators Output Indicators Data Gathering Tools/Methods
6. Governance and Justice
a. Low incidence of vertical and horizontal conflict
b. More efficient public service
• Public service productivity index
c. Strong local and fiscal autonomy
• % of locally generated revenues in total budget
d. Improved institutional and technical capacity
• Employee attrition rates in public offices
• Employee turnover rates in public offices
e. Improved public accountability and engagement with civil society
• Number of institutions and agencies using 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
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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.
Environment and Natural Resources
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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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.
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