chapter 17 attaining just and lasting peace 3 the creation

CHAPTER 17: Attaining Just and Lasting Peace

Phil ippine Development Plan 2017-2022 Midterm Update

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Chapter 17 1

Attaining Just and Lasting Peace 2

The creation of an environment for just and lasting peace is critical to the realization of the country’s long 3 term vision for a matatag, maginhawa, at panatag na buhay. Communities living in peaceful coexistence 4 with one another can harness the fruits of economic growth through improved access to social services and 5 financial opportunities, and increased over-all human development potential without fear or threat to their 6 lives and livelihoods. Conversely, development will likely diminish the likelihood for armed conflict, 7 especially if socioeconomic interventions are inclusive, participatory, and sustainable. 8

In the first three years of the Administration, significant strides have been achieved resulting in the 9 successful negotiation and implementation of peace agreements with internal armed conflict groups. 10 Noteworthy among these are: (a) the enactment and ratification of Republic Act 11054 or the Bangsamoro 11 Organic Law 1 ; (b) completion process for the implementation of peace agreements with the 12 Rebolusyonaryong Partido ng Manggagawang Pilipino/Revolutionary Proletariat Army/Alex Boncayao 13 Brigade (RPM-P/RPA/ABB) and the Cordillera Bodong Administration – Cordillera People’s Liberation 14 Army (CBA-CPLA); and (c) the issuance of Executive Order No. 702 institutitionalizing a whole-of-nation 15 approach which shifts the government’s approach to end local communist armed conflict. Complementary 16 to these peace agreements were interventions for the continuous protection and development of conflict-17 affected and conflict-vulnerable communities and the implementation of other peacebuilding initiatives. 18

For the remainder of the Planning Period, government efforts shall focus on ensuring successful transition 19 to the new Bangsamoro Government, completing the normalization processes for the Bangsamoro region 20 and the areas covered by the peace agreements with the CBA-CPLA and the RPMP/RPA/ABB, as well as 21 institutionalizing and implementing localized peace engagements in ending local communist armed conflict. 22 Addressing the threat of terrorism and violent extremism through a holistic, coherent and coordinated 23 national framework will likewise be pursued through peacekeeping, post-conflict peacebuilding activities 24 addressing the roots of radicalization and violent extremism. Enhancement and expansion of peace and 25 development policies and programs shall likewise be pursued through harmonization and convergence in 26 the delivery of services, strengthening community resilience, and peacebuilding to avoid further escalation 27 of violence and guarantee the non-recurrence of conflict. 28

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1 An Act Providing for the Organic Law for the Bangsamoro Autonomous Region in Muslim Mindanao, Repealing for the Purpose Republic Act 6734, Entitled "An Act Providing for An Organic Act for the Autonomous Region in Muslim Mindanao," As Amended by Republic Act No. 9054, Entitled "An Act to Strengthen and Expand the Organic Act for the Autonomous Region in Muslim Mindanao." 2 Institutionalizing the Whole-of-Nation Approach in Attaining Inclusive and Sustainable Peace, Creating a National Task Force to End Local Communist Armed Conflict, and Directing the Adoption of National Peace Framework



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Assessment and Challenges 30

31 The signing and subsequent ratification of the Bangsamoro Organic Law (BOL) marked a historic 32 and significant milestone in the decades-long struggle for self-governance and peace in Mindanao. 33 The establishment of the new Bangsamoro Government through the enactment and ratification of Republic 34 Act (RA) 11054 (The Organic Law for the Bangsamoro Autonomous Region in Muslim Mindanao 35 [BARMM]) recognizes the” justness and legitimacy of the cause of the Bangsamoro people and all 36 indigenous cultural communities in the BARMM to secure their identity and posterity, allowing for 37 meaningful self-governance”. It marked the end of more than 40 years of armed hostilities and the 38 culmination of nearly 20 years of peace negotiations between the Government of the Philippines (GPH) 39 and the Moro Islamic Liberation Front (MILF). The territorial jurisdiction of the BARMM now included 40 the former ARMM provinces and in addition, Cotabato City and the 63 barangays from the six 41 municipalities3 of North Cotabato. 42

The BOL guarantees the new Bangsamoro Government fiscal autonomy through increased powers to create 43 its own sources of revenue and levy taxes, fees, and charges. In addition, the National Government will 44 provide additional budgetary support in the form of an annual block grant4, a Special Development Fund, 45 and subsidy for infrastructure development programs and projects. The increased financial resources and 46 investments are expected to spur economic growth, improve public financial management, and provide 47 seamless and effective delivery of public services to the people of Bangsamoro. 48

The Bangsamoro Transition Authority (BTA) was constituted to serve as the interim government of the 49 BARMM and to ensure the effective functioning of the regional government until the election of the 50 regional officials in 2022. The BTA is comprised of the Moro Islamic Liberation Front (MILF), Moro 51 National Liberation Front (MNLF), indigenous peoples, youth, women, traditional leaders, and settler 52 communities. The BTA will work towards building lasting peace and inclusive growth in the region. 53

Initial efforts were also undertaken in the setting up of the intergovernmental relations between national 54 government and the Bangsamoro government, a crucial mechanism during the transition period and in the 55 implementation of key provisions in the BOL. The Intergovernmental Fiscal Policy Board (IGFPB) has 56 already been organized between the BARMM Ministry of Budget, Finance and Management and the 57 national technical working group. The partnership seeks to assist the Bangsamoro government on how to 58 properly manage their funds and initially run its finance and budget departments to ensure long-term fiscal 59 stability. 60

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3 Barangays from the Municipalities of Aleosan (Dunguan and Tapodoc); Carmen (Kibayao, Kitulaan, Langogan, Manarapan, Nasapian, Pebpoluan and Tubig); Kabacan (Buluan, Nanga-an, Ped-tad, Sanggadong, Simbuhay, Simone and Tamped); Midsayap (Central Labas, Damatulan, Kadigasan, Kadingilan, Kapinpilin, Kudangaran, Malingao, Mudseng, Nabalawag, Olandang, Sambulawan, Tugal and Tumbras); Pigcawayan (Balacayon, Buricain, Datu Binasing, Datu Mantil, Kadingilan, Libungan Torreta, Lower Baguer, Lower Pangangkalan, Matilac, Patot, Simsiman and Upper Pangankalan) and Pikit (Bago-inged, Barungis, Batuwalan, Bualan, Buliok, Bulol, Fort Pikit, Gli-Gli, Gotokan, Kabalasan, Lagunde, Macabual, Macasendeg, Manaulanan, Nabundas, Nalapaan, Nunguan, Panicupan, Pamalian, Rajahmuda, S. Balong and S, Balongis). 4 The annual block grant shall be equivalent to five percent (5%) of the net national internal revenue tax collection of the Bureau of Internal Revenue (BIR) and the net collection of the Bureau of Customs (BOC) from the third fiscal year immediately preceding the current fiscal year



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There is a heightened and urgent need to implement the Normalization Program in the Bangsamoro. 62 Complementary to the establishment of the Bangsamoro Government under the BOL is the implementation 63 of the normalization program. EO No. 79 (Implementing the Annex on Normalization under the 64 Comprehensive Agreement on the Bangsamoro [CAB]), issued in April 2019, recognizes normalization as 65 a vital component of the Bangsamoro peace process. The EO provides for the creation of an Inter-Cabinet 66 Cluster Mechanism on Normalization (ICCMN) to prioritize, coordinate and mobilize government agencies 67 in the implementation of the following aspects of the normalization: (a) security; (b) socioeconomic 68 development program; (c) confidence-building measures; and (d) transitional justice and reconciliation. 69

The government continuously engaged the Moro National Liberation Front (MNLF) on the 70 remaining commitments to complete the implementation of the 1996 Final Peace Agreement (FPA) 71 and converged efforts with the BOL and the BARMM. The Government is currently engaging the two 72 factions of the MNLF, namely the group under the leadership of Founding Chairman Nur Misuari and 73 another headed by Yusop Jikiri to complete the remaining commitments of the 1996 FPA. Two remaining 74 commitments resulting from the Tripartite Review Process (TRP) of the 1996 FPA are geared towards 75 uplifting the socio-economic and security conditions of the MNLF combatants, their families and 76 communities, especially for the members who were not integrated into the Armed Forces of the Philippines 77 (AFP) and Philippine National Police (PNP) by virtue of the FPA. 78

In the efforts to converge the gains of the 1996 Final Peace Agreement and the CAB, MNLF representatives 79 of the then Bangsamoro Transition Commission integrated in the crafting of the BOL, the remaining 80 commitments resulting from the completion of the Tripartite Review Process, namely, the 42 consensus 81 points; agreements on co-management of strategic minerals; participation of the MNLF in the transitional 82 government or BTA and territory for plebiscite. The provisions 5 in the BOL enable the Bangsamoro 83 Government to have power to create or control sources of revenues or shares from the exploration, 84 development and utilization of natural resources within the Bangsamoro territorial jurisdiction. Moreover, 85 ten MNLF members or individuals representing the MNLF were appointed as members of the BTA and 86 now serve as members of the Bangsamoro Parliament. Likewise, four MNLF-BTA members and one 87 MNLF senior leader have been elected or appointed to different positions in the Parliament and in the 88 ministries. The MNLF leadership under Yusoph Jikiri manifested their full support to the BOL and 89 recognized the BARMM as the more appropriate political solution to the Bangsamoro issue. 90

While the peace negotiations with the Communist Party of the Philippines/New People’s 91 Army/National Democratic Front of the Philippines (CPP/NPA/NDFP) was terminated, the 92 government institutionalized a whole-of-nation approach to the peace process. Peace negotiations with 93 the CPP/NPA/NDF were officially terminated in November 2017 through the issuance of Proclamation No. 94 360. Despite such issuance, backchannel efforts were still pursued by the Government of the Republic of 95 the Philippines (GRP) Panel to discuss the President’s requirements for possible resumption of the talks: 96 (1) that there will be no coalition government; (2) that collection of the so-called revolutionary tax shall be 97 stopped; (3) that the venue of the talks will be local; and (4) that there will be a ceasefire agreement in 98 which armed NPA members are encamped in designated areas. However, successful results with the peace 99 negotiations at the national level were not achieved due to various acts of violence and hostilities committed 100

5 Section 34, Article XII on Fiscal Autonomy and Section 10, Article XIII on Regional Economy and Patrimony of the BOL



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by the CPP/NPA/NDF. This prompted the President to declare the CPP-NPA as an entity designated and/or 101 identified as a terrorist organization through Proclamation No. 374 issued in December 2017. 102

In recognition of the need to reframe and refocus government’s policy in addressing the root causes of 103 insurgencies, internal disturbances, and armed conflict, Executive Order (EO) No. 70 was issued to 104 institutionalize the whole-of-nation approach in attaining inclusive and sustainable peace in communities 105 affected by the communist insurgency. The National Task Force to End Local Communist Armed Conflict 106 (NTF-ELCAC) was also created to oversee the effective implementation of the whole-of-nation approach 107 through a two-tracked strategic framework: (a) the political, economic, socio-cultural track that will address 108 the primary issues and root causes of conflict; and (b) the peace engagement, law enforcement and military 109 track which aims to entice the rebels to surrender and delegitimize the insurgents through sustained military 110 operations and local peace engagements and negotiations. 111

In support of EO 70, the Cabinet Officers for Regional Development and Security (CORDS) System was 112 also reactivated in 2019 to oversee peace, security, and development efforts across the country. Furthermore, 113 Joint Memorandum Circular (JMC) No. 1 series of 2019 provided the guidelines for the creation of Regional 114 Task Forces (RTFs) under the supervision of their respective CORDS, aimed towards fast-tracking the 115 promotion of peace and development at the regional level. The JMC likewise provides for the creation of 116 Local Task Forces (provincial, city, municipal and barangay) to ensure convergence in the implementation 117 of EO 70. The Guidelines for the Conduct of Local Peace Engagements, signed September 2019, contains 118 the principles, policy framework, operating structures and mechanics/phases of localization in the conduct 119 of nationwide local peace engagements in conflict-affected and conflict-vulnerable areas. 120

Efforts to finalize and complete the implementation of peace agreements with other internal armed 121 groups were actively pursued. The Government actively pursued the completion of components 122 according to signed peace agreements with the Rebolusyonaryong Partido ng Manggagawa ng Pilipinas-123 Revolutionary Proletariat Army-Alex Boncayao Brigade (RPMP-RPA-ABB) and the Cordillera Bodong 124 Administration-Cordillera People’s Liberation Army (CBA-CPLA). 125

The GPH and the RPMP-RPA-ABB particularly the Tabara-Paduano Group (TPG) signed the Clarificatory 126 Implementing Document (CID) to the 2000 Peace Agreement with the RPMP-RPA-ABB held in July 2019. 127 The CID provides for the implementation of a three-year normalization plan with the following components: 128 (a) disposition of arms and forces and security arrangements; (b) socioeconomic reintegration; (c) provision 129 on the restoration of civil and political rights through pardon and release of the remaining alleged political 130 offenders/political prisoners; (d) transformation of the RPMP-RPA-ABB (TPG) into a civilian organization 131 engaging in socio-economic and political activities; and (e) community peace dividends. The Joint 132 Enforcement and Monitoring Committee (JEMC) was reconstituted to supervise and monitor the 133 implementation of the CID. 134

Prior to the finalization of the CID, the government implemented various socioeconomic development 135 programs. These include the profiling of 727 RPA-ABB members through the use of biometrics; inventory 136 of firearms, explosives, and ammunitions; provision of immediate cash assistance, livelihood support 137 (notably through the DENR’s National Greening Program and DSWD’s Sustainable Livelihood Program), 138 and social protection packages (e.g., scholarships and PhilHealth coverage); and establishment of peace 139 and development communities in Aklan, Negros Oriental, and Negros Occidental. 140



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In the meantime, the TPG has initiated its transformation from an armed group into a civilian organization 141 engaging in socioeconomic and political activities. The TPG is now known as the Kapatiran para sa 142 Progresibong Panlipunan, Inc. (KAPATIRAN), the legitimate legal personality of the TPG registered with 143 the Securities and Exchange Commission. 144

On the other hand, the immediate completion of the 2011 Memorandum of Agreement with the CBA-CPLA 145 will be pursued. Partnerships and collaboration within the government6 were strengthened to facilitate the 146 conclusion of the peace process with the CBA-CPLA. Efforts to support the region’s autonomy efforts as 147 the bigger platform for regional peace and development were intensified by lobbying its inclusion in the 148 priority legislative agenda of the current administration. Strong collaborations among key government 149 agencies were also carried out for continuous engagements to bring together stakeholders of Cordillera 150 autonomy and generate wider support from multi-sectoral groups and the broader public. 151

Despite various challenges, the delivery of socioeconomic interventions was sustained to further 152 protect and develop conflict-affected and conflict-vulnerable communities. Various socioeconomic 153 programs and projects were sustained through the Payapa at Masaganang Pamayanan (PAMANA) 154 Program, which is one of the government’s peace and development convergence initiatives. Despite various 155 implementation and security challenges, the PAMANA Program continues to deliver interventions and to 156 provide opportunity to various entities of the Government at the national and local levels towards forging 157 partnerships for the benefit of communities in peace agreement zones and in isolated and hard-to-reach 158 conflict-affected and conflict-vulnerable areas. These include socioeconomic development programs such 159 as the following: (a) social and community development (e.g. study grant and health insurance coverage 160 for former combatants and/or their next-of-kin); (b) support to indigenous peoples concerns relative to 161 ancestral domain delineation and recognition, ancestral domain sustainable development and protection 162 plan formulation and other educational assistance; (c) support to the agriculture and fisheries sectors; (d) 163 various capacity building programs; (e) development of settlement sites, including water and power supply; 164 and (f) provision of livelihood assistance and infrastructure projects (e.g. bridges, roads, shelter). Moreover, 165 conflict-sensitivity and peace-promoting approach of PAMANA coupled with the Community-Driven 166 Development approach by DSWD has helped ensure that governance processes and structures enhance 167 social cohesion, strengthen community resilience, and build enduring peace. 168

Reintegration programs for former rebels, their families and communities were strengthened, 169 enhanced and rationalized vis-à-vis other government programs. The reintegration program for former 170 rebels and surrenderees was enhanced through the issuance of Administrative Order (AO) No. 10 171 (Centralizing All Government Efforts for the Reintegration of Former Rebels and Creating for the Purpose 172 an Inter-Agency Task Force) in April 2018 which created the Enhanced Comprehensive Local Integration 173 Program (E-CLIP). The AO also established Task Force Balik-Loob as the central coordinating body to 174 supervise the reintegration efforts. Through the E-CLIP, nearly 2,000 former rebels benefitted from various 175 programs such as immediate assistance, livelihood support and skills trainings, firearms remuneration, and 176 awarding of Certificates of Land Allocation. The E-CLIP (together with the Amnesty Program) was also 177 aligned with the implementation of the NTF-ELCAC pursuant to EO 70. 178

6 On 20 June 2019, OPAPP strengthened its partnership with the 5th ID, 7th ID and AFP Peace and Development Office (AFPPDO) of the Armed Forces of the Philippines (AFP).



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Other peacebuilding initiatives were implemented to create an environment conducive to peace and 179 development, as well as prevent further escalation of conflict. Aside from the PAMANA, E-CLIP, and 180 NTF-ELCAC programs and projects, other initiatives were undertaken to build on and sustain the gains of 181 the peace process: 182

183 • The National Action Plan to Prevent/Counter Violent Extremism (NAP-PCVE), which was 184

approved by the Anti-Terrorism Council (ATC) in May 2019. The NAP-PCVE is the government’s 185 comprehensive, harmonized, and synchronized strategy to prevent and counter violent extremism, 186 and includes programs that address the political, economic, cultural, psychosocial, and religious 187 factors of radicalization that lead to violent extremism. It focuses on six sectors identified as being 188 vulnerable to violent extremism: the community; persons deprived of liberty with terrorism-related 189 cases in jails, and violent extremist offenders (VEOs) in prisons; religious leaders; learning 190 institutions; social media users; and Overseas Filipino Workers (OFWs). 191 192

• The National Action Plan on Women, Peace and Security (NAP-WPS), which is currently in 193 its third generation and seeks to continue the best practice of women’s presence in formal peace 194 tables as well as in other informal spaces i.e. civil society and grassroots participation, including 195 consultations on indigenous women’s rights. It also aims to support various initiatives where 196 women empower other women, recognize the intersectionality of gender, ethnicity, and religion, 197 and build a stronger constituency for peace and conflict transformation. The NAP-WPS 2017-2022 198 also serves as the explicit articulation of the incorporation of the gender perspective in the Six-199 Point Peace and Development Agenda, particularly on building a culture of peace and conflict 200 sensitivity by integrating gender in the peace process. 201 202

• The Peoples Peace Tables, which are continuously convened to serve as government’s platform 203 in ensuring people’s participation in the peace process. They provide democratic spaces for 204 continuing dialogues between the government and community stakeholders to surface, discuss and 205 clarify issues and concerns that are at the root of, resulting from or affecting the peace process, and 206 gathering recommendations and strategies to address these concerns. The sectors and groups 207 include indigenous peoples, youth, women, and internally displaced peoples (IDPs). 208 209

• The Social Healing and Peacebuilding Program (SHAPE), which was launched to support to 210 the recovery and rehabilitation efforts of the government during the Marawi Crisis through the Task 211 Force Bangon Marawi (TFBM). Together with other government interventions in rebuilding 212 Marawi City, SHAPE was designed to address the immediate and sustaining issues of the IDPs 213 affected by the conflict. The program intends to enhance social cohesion, promote peacebuilding 214 and contribute to peace and security in Marawi through five components: (1) peacebuilding needs 215 analysis and planning; (2) social healing; (3) CSPP mainstreaming; (4) sustaining peace initiatives; 216 and (5) transitional socio-economic initiatives, which includes provision of initial capital for small 217 enterprise projects and entrepreneurial training programs. The College Educational Assistance 218 Project was also launched to provide transitional cash grants of PHP10,000 for one year for 700 219 students residing in Marawi City. 220 221

• Capacity building programs for mainstreaming conflict-sensitive and peace promoting 222 (CSPP) approaches in national and local development, which includes the development of the 223 Guidebook and Facilitator’s Manual on CSPP as part of the Comprehensive Development Plans 224 for LGUs in conflict-affected areas to serve as a reference guide and practical tool kit in adopting 225



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a CSPP framework in local development planning. 24 regional line agencies; four security sector 226 agencies; 18 other national government and attached agencies; 67 local government units; six civil 227 society organizations, and one academic organization were capacitated in twelve regions on 228 mainstreaming the CSPP. 229 230

• Various policies and initiatives for the protection of children in armed conflict, notably RA 231 11188 (Special Protection of Children in Situations of Armed Conflict Act), signed into law in 232 January 2019, which sought to strengthen protection mechanisms for children involved in, affected, 233 and displaced by armed conflict situations. The law tasks the Inter-Agency Committee on Children 234 in Situations of Armed Conflict to effectively implement the provisions of the said law. It declares 235 children as “zones of peace”, and such treatment shall extend beyond territorial and geographical 236 boundaries and shall focus on the promotion and protection of their rights at all times. Other 237 initiatives include the development of a National Policy Framework on Schools and Learners as 238 Zones of Peace by the Department of Education to guide the public education sector towards the 239 creation of a safe, inclusive, and conflict-sensitive learning environments. The establishment of the 240 Monitoring, Reporting, and Response System by the Council for the Welfare of Children, which 241 provides a common framework for monitoring, reporting, and responding to victims of grave child 242 rights violations, has also resulted in the validation of 104 reports related to killing, recruitment and 243 use of children, and attacks on schools particularly in Mindanao as of 2018. (cross-refer with 244 Chapter 11) 245 246

• Mainstreaming of peace education and promoting a culture of peace and non-violence in both 247 formal and non-formal settings, with conversations on Mindanao Histories and Studies (MHS)7 248 undertaken to give space to discuss future developments of Mindanao Histories and Studies based 249 on a roadmap developed by the Technical Working Group (TWG) on MHS. The TWG was formed 250 in 2018 consisting of Mindanaoan and national civil society organizations, academic as well as 251 governmental institutions that worked thoroughly to create a step-by-step roadmap for integrating 252 Mindanaoan narratives from Indigenous People, Muslim Filipinos and Filipino Christian migrants 253 in the Philippine Educational System. The activity served as a venue for feedback and perspective 254 in shaping an inclusive and conflict-sensitive Philippine Education System. 255

256 Despite these efforts, communities still need to increase their capacity to address conflict and reduce their 257 vulnerabilities. Affected communities remain exposed to negative impact of violent conflicts. Needs and 258 rights of vulnerable groups such as women, children, indigenous peoples, persons with disabilities, and 259 internally displaced persons are hugely disregarded and set aside. And while the government provides 260 avenues to address some of these issues, there remain substantially more areas that require attention. 261 Programs, projects, mechanisms and institutions of government that mitigate and respond to situations of 262 armed conflict likewise need to be strengthened and consolidated to amplify impact on the ground in critical 263 areas. 264

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7 MHS is comprised of historical and contemporary events in Mindanao including local Muslim, Christian, as well as Indigenous Peoples’ ethnic narratives. Besides referring to institutional and local research it also relates to academic studies concerning Mindanao. Attention is paid to Mindanao’s identities, cultures, politics, religions, languages, folkways, tales, as well as its traditional conflict-resolution systems, trading practices, family relations and, finally its concepts of peace and development. Foundational information for MHS are gathered based on historical and scientific research approaches including traditional oral history transmission.



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Strategic Framework 266

Acknowledging its role in laying down the foundation for inclusive growth and the attainment of a matatag, 267 maginhawa, at panatag na buhay, the government shall continue its efforts in the pursuit of just and lasting 268 peace for the remainder of the Plan Period. These include the effective implementation of signed peace 269 agreements and continuous delivery of various peace and development interventions to conflict-affected 270 and conflict-vulnerable areas. 271

Figure 17.1. Strategic Framework 272

273 274 275



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To support the outcomes for the remainder of the Plan Period, the following strategies will be implemented 276 in line with the President’s Six-Point Peace and Development Agenda: 277

Subsector Outcome 1: Peace Agreements with all internal armed conflict groups 278 successfully negotiated and implemented 279

Support the BTA as the interim government of the BARMM. Given the ongoing transition process from 280 the ARMM, it is critical for the BTA to undertake priority activities to effect the eventual establishment of 281 a fully-functioning BARMM government in 2022. These include the enactment of priority legislation to 282 provide legal bases for subsequent policies and programs to be enforced in the BARMM, the determination 283 of parliamentary districts for the first regular elections for the members of the Parliament, the organization 284 of its own bureaucracy, and the full transfer of powers and properties of the ARMM to the Bangsamoro 285 government, including the disposition of ARMM personnel. These activities will be guided by the BTA’s 286 five priority pillars: education, health, economic development, strategic infrastructure, and moral leadership. 287 288 As the interim government during the three-year transition period until 2022, support to the BTA will be 289 strengthened through partnerships with national government agencies and international partners. The 290 setting up of the intergovernmental relations also needs to be expedited as they are critical to the transition 291 period and implementation of key provisions in the BOL, particularly with regard to strengthening vertical 292 linkages of the Bangsamoro government and the national government. Aside from the IGFPB, other 293 intergovernmental relations bodies that need to be organized are the following: (a) Philippine Congress-294 Bangsamoro Parliament Forum; (b) Joint Body for the Zones of Joint Cooperation (Sulu Sea and Moro 295 Gulf); (c) Intergovernmental Infrastructure Development Board; (d) Intergovernmental Energy Board; and 296 (e) Bangsamoro Sustainable Development Board. 297 298 Intensify the implementation of the normalization program in the Bangsamoro. Complementary to the 299 establishment of the BARMM is the heightened implementation of the normalization program as provided 300 for in the Annex on Normalization under the CAB. The creation of the Inter-Cabinet Cluster Mechanism 301 on Normalization (ICCMN) and the existence of joint bodies (Joint Normalization Committee, Joint Peace 302 and Security Committee, and Joint Peace and Security Teams) guarantees the harmonization, synchronicity 303 and timely completion of the components and aspects of the program covering security, socioeconomic 304 development, confidence-building measures, and transitional justice and reconciliation. 305 306 In particular, the ICCMN shall ensure the timely completion of projects and activities under each aspect of 307 the normalization program, such as the decommissioning of MILF forces and weapons; implementation of 308 socioeconomic development efforts particularly for the Bangsamoro Islamic Armed Forces (BIAF), the 309 MILF’s armed wing; the transformation of former MLF camps into villages with increased access to 310 economic opportunities; and the promotion of social healing, reconciliation, and cultural harmony to 311 address the legitimate grievances of the Bangsamoro people. It also includes the creation of a technical 312 working group to study and recommend the propriety of grant of amnesty, pardon or other available 313 processes towards the resolution of cases of persons charged with or convicted of crimes and offenses 314 connected to the armed conflicts in Mindanao. 315 316 The components and phases of the normalization program will be carried out in accordance with the agreed 317 roadmap from 2019 to 2022. Normalization during the transition stage of the BARMM is based on the 318



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“principle of partnership between the GPH and the MILF working together to secure the peace on the 319 ground.8” 320 321 Complete the implementation of the remaining commitments under the 1996 Final Peace Agreement 322 between the GPH and the MNLF. The government will further pursue the completion of its remaining 323 commitments and settle other concerns under the 1996 FPA with the MNLF anchored on the results of the 324 TRP between the GPH, MNLF, and the Organization of Islamic Cooperation within an agreed timeframe. 325 Among the deliverables include the enhancement of the socio-economic and security conditions of the 326 MNLF former combatants, their families and communities, and the operationalization of a monitoring 327 mechanism to oversee the implementation of all points of consensus arrived at by the TRP. The full 328 implementation of 1996 FPA hopes to contribute to sustainable and durable peace, development and 329 security in Southern Philippines and ensure inclusivity of peace dividends. To this end, a coordinating body 330 between the government and the MNLF will be created to serve as a venue for cooperation of the MNLF 331 to achieve immediate peace in Sulu by, among others, helping in combatting the Abu Sayyaf Group (ASG) 332 and convincing their MNLF relatives to return to the folds of the law. The remaining commitments under 333 the 1996 FPA are expected to be fully implemented by 2022. 334 335 Effectively implement of the National Plan to End Local Communist Armed Conflict 2019-2022 that 336 will operationalize the whole-of-nation approach to address local communist and other armed 337 conflicts pursuant to EO 70. Given the developments and changes in the strategy to address the communist 338 insurgency, government has directed the shift to localized peace engagements to be pursued by local 339 government units within their respective areas of responsibility. As part of Government’s convergent peace 340 and development efforts embodied in EO 70, it will move forward measures that effectively deliver social 341 services and prevent geographically isolated and disadvantaged areas and marginalized sectors from being 342 vulnerable to conflict and radicalization. 343 344 The creation of the NTF-ELCAC will enable government to prioritize and harmonize delivery of basic 345 services, social development packages, facilitate inclusivity and address critical peace and security issues 346 at the level of communities. The NTF-ELCAC, headed by the President with the National Security Adviser 347 as Vice-Chair, will oversee the effective implementation of the whole-of-nation approach through a two-348 tracked strategic framework. These two tracks shall be undertaken through the implementation of the twelve 349 lines of efforts (LOEs): local government empowerment; international engagement; legal cooperation; 350 strategic communication; basic services, infrastructure and resource management; poverty reduction, 351 livelihood, and employment; peace, law enforcement, and development support; situational awareness and 352 knowledge management; localized peace engagement; E-CLIP and amnesty; and sectoral unification, 353 capacity-building, empowerment, and mobilization. These LOEs shall provide focus and deliberate efforts 354 in the implementation of programs and projects, enhance coordination and collaboration between and 355 among national government agencies and other stakeholders, and fast-track the delivery of services. 356 357 Effectively undertake localized peace engagements through community problem solving sessions and 358 local peace dialogues with local insurgent groups. The peace engagement, law enforcement, and military 359 track of the NTF-ELCAC mechanism shall be utilized in order to achieve the desired outcome of ending 360 local communist armed conflict through a whole-of-nation approach. In particular, capacity enhancement 361 for local chief executives on the conduct of local peace engagements shall be pursued to ensure that such 362 engagements are undertaken with mutual confidence and trust among parties, and that desired outcomes of 363 the peace process are achieved. For this purpose, a new panel composed of security officials, government 364

8 Annex on Normalization, Section B-1 signed on 25 January 2014



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and private sector will be created to oversee local peace engagements and shall act as adviser for local peace 365 dialogues through the establishment of protocols and other procedures. 366 367 Fast-track the completion of remaining commitments under the closure agreements with the RPMP-368 RPA-ABB and the CBA-CPLA. The government hopes to complete the peace processes of the GPH with 369 the RPMP-RPA-ABB; and, with the CBA-CPLA. By the end of 2022, the peace process should facilitate 370 the return of former RPMP-RPA-ABB and CBA-CPLA members, their families and communities to 371 productive and normal lives. 372 373 As a model for localized peace engagements, the government is undertaking actions to complete the 374 commitments under the 2000 Peace Agreement with the RPMP-RPA-ABB, through the implementation 375 of components under the signed CID. These strategies will be part of the normalization plan for the RPMP-376 RPA-ABB from 2019 to 2021, particularly the TPG/KAPATIRAN, which includes the decommissioning 377 of the 727 RPM-P/RPA/ABB/TPG members, support for security arrangements, provision of immediate 378 assistance, establishment of settlement sites, support to review of cases of alleged political offenders and 379 proposed amnesty. These commitments and components aim to attain the decommissioning of arms and 380 forces of the group, fully transform them from an armed group into a civilian organization and provide 381 government development support to members and identified communities. 382 383 On the other hand, the completion strategy for the CBA-CPLA will focus on the implementation and 384 sustainability of socioeconomic reintegration programs for former CPLA members, their families and 385 communities. These programs include employing former CPLA members as forest guards; training and 386 livelihood projects for identified people’s organizations; provision of health insurances, educational 387 assistance, and community development projects. Of equal importance are continuing multi-stakeholder 388 convergence to support regional peace and development advocacies and interventions. A mechanism will 389 also be established to focus on the delivery of the remaining commitments of the 2011 MOA components 390 leading to the comprehensive normalization of the former members of the CBA-CPLA. The completion 391 process also involves expanding the support and intervention to unreached CPLA members. 392 393 Moreover, the RPMP-RPA-ABB and CBA-CPLA peace processes will enhance its approaches and 394 strategies to cater to the implementation and localization of EO 70 with local counterparts. 395

Subsector Outcome 2: Communities in conflict-affected and conflict-vulnerable areas 396 protected and developed 397

Strengthen convergence and complementation in the implementation of PAMANA. PAMANA will 398 remain as the government’s peace and development convergence program for conflict-affected and conflict-399 vulnerable areas. It will continue to focus on the implementation of peace-promoting and catch-up 400 socioeconomic development pursuant to its objectives in support of the Six-Point Peace and Development 401 Agenda. As such, convergence and complementation with other local and national government initiatives 402 shall be strengthened, including the Retooled Community Support Program (RCSP) of the Department of 403 the Interior and Local Government (DILG). The RCSP, as a convergence mechanism for LGUs, is based 404 on the Armed Forces of the Philippines’ (AFP) Community Support Program (CSP) and was formulated to 405 strengthen CSP initiatives of the military through the implementation of programs and projects that are 406 LGU-driven and are geared towards institutionalizing sustainable peace and development. As such, close 407 coordination with identified local government units and the Engineering Brigade of the (AFP) shall be 408 undertaken especially in far-flung communities and areas with security risks. 409 410



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Ensure convergence in the delivery of basic services and facilitate active participation of all sectors 411 of society through a whole-of-nation approach to end local communist armed conflict. The political, 412 economic, and sociocultural track of the NTF-ELCAC mechanism highlights the importance of 413 complementary developmental efforts to address the broader social, economic, and political grievances 414 which gave rise to armed conflict. Socioeconomic interventions, including the E-CLIP and PAMANA, need 415 to be effectively implemented through the convergence of all departments, bureaus, offices, agencies, and 416 instrumentalities of government, as well as with various stakeholders at the national, regional, and local 417 levels. Delivery of basic services and social development packages shall be prioritized and harmonized to 418 facilitate inclusivity and address critical peace and security issues particularly at the community level. The 419 RTFs shall also be further strengthened as a mechanism for national-regional coordination, to address key 420 issues and concerns affecting the regions’ peace, security, and socioeconomic development. 421 422 Empower communities by increasing their capacity to address conflicts and reducing their 423 vulnerabilities. Continuing engagement with the most severely affected and vulnerable groups in situations 424 of armed conflict (namely women, indigenous peoples, children, elderly, internally displaced persons), and 425 the strengthening of local capacities for addressing peace, conflict and security issues will be central to 426 sustaining government’s community-based support and peacebuilding programs. The youth sector is a 427 particularly significant partner in peace education and peace advocacy programs to reach mainstream, 428 school-based and non-school organizations of various ethnolinguistic groups. The conduct of capacity 429 development activities on CSPP for implementing partners and key stakeholders shall continue to be 430 pursued. The Peoples Peace Tables will be continuously convened to serve as government’s platform to 431 ensure people’s participation in the peace process. Continuous engagements with local civil society 432 organizations will likewise be expanded in recognition of the important role of non-government institutions 433 in advancing the peace process agenda. 434 435 Strengthen government peace and development institutions and mechanisms to increase their 436 responsiveness to peace, conflict, and security issues. In order to cut vicious cycles of violence, the 437 processes of renewing relationships among people and groups, and restoring confidence in institutions will 438 be given utmost focus together with the provision of citizen security, economic opportunities, and justice 439 to communities affected by and are vulnerable to armed conflict. Approaches to planning, programming, 440 implementation, monitoring and evaluation of programs in conflict-affected and conflict-vulnerable areas 441 will be undertaken under the Conflict-Sensitive and Peace Promoting (CSPP) framework. Mainstreaming 442 of CSPP approaches in plans and programs of LGUs, NGAs, and various stakeholders shall be pursued by 443 government to make sure that a peace lens is adopted in programs and projects for these areas. 444 445 Continue and expand the mainstreaming of peace education and promote a culture of peace and non-446 violence in both formal and non-formal settings. An environment where peace can be built and nurtured 447 cannot be sustained without mainstreaming peace education and promoting a culture of peace and non-448 violence in both formal and non-formal settings. As such, efforts to institutionalize peace education in basic, 449 higher, and technical and vocational education will be undertaken to create a society characterized by justice, 450 equity, tolerance, harmonious pluralism, and full respect of human rights. As such, a roadmap for 451 integrating Mindanaoan narratives from Indigenous People, Muslim Filipinos and Filipino Christian 452 migrants into the Philippine educational system will be enhanced At the same time, an inventory of existing 453 materials containing Mindanao histories and studies in their respective institutions/localities shall be created 454 to be used as reference for documentation and crafting of learning materials. 455 456 Undertake social healing and reconciliation programs in support of the rehabilitation and recovery 457 of Marawi City. The effective implementation of the SHAPE Program and its components shall give 458 priority to healing of individuals and reconciliation within and among communities as complementary to 459



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the humanitarian interventions being undertaken by TFBM and its partners. The building and rebuilding of 460 relationships of the IDPs together with their community leaders, sectoral representatives, operating NGAs, 461 LGUs, CSOs and all stakeholders shall aim to bring about social cohesion, resilience and sustainable peace 462 towards the recovery and rehabilitation of Marawi and its nearby municipalities. 463 464 Continuously implement and localize the NAP-WPS to ensure empowerment and participation of 465 women in the peace process, as well as the protection of women’s rights in conflict situations. 466 Women’s meaningful participation in the peace process shall be encouraged to ensure the protection of 467 women’s rights in conflict situations. The continued implementation of the NAP-WPS will guarantee the 468 protection and promotion of women’s rights and capacities in conflict situations and expand their role in 469 the peace process. 470 471 Effectively implement the NAP-PCVE. The prevention of radicalization is a paramount strategy to sustain 472 the gains of peace and expunge violent extremism in the minds of the youth and other marginalized sectors. 473 The implementation of the NAP-PCVE shall be effectively undertaken through the institutionalization of 474 PCVE strategies down to the grassroots level, involvement of different stakeholders in implementing PCVE 475 programs, adoption of a comprehensive and people-centered approach to address drivers of radicalization, 476 and alignment of interventions with the rule of law, international human rights law, and international 477 humanitarian law. 478 479 Ensure protection of children in situations of armed conflict. As one of the sectors most vulnerable not 480 only to the effects of conflict but also to the influence of radicalization and violent extremism, the protection 481 of the youth will be heightened through the effective implementation of RA 11188. The comprehensive 482 program framework shall be updated and the accompanying work plan on the implementation of the law 483 shall likewise be finalized. 484

Legislative Agenda 485

486 Legislative Agenda Rationale Separate amnesty proclamations for the Bangsamoro, RPM-P/RPA/ABB and former rebels of the communist terrorist groups (CTG)

Enabling law creating an autonomous region in the Cordilleras

487 488

chapter 17 attaining just and lasting peace 3 the creation

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