MPC IIBARMMTransitionMidterm ReviewII

RAPIDMIDTERMREVIEWOFTHEBANSAMOROTRANSITIONPERIOD

October2020

ThisRapidMidtermReviewwasconductedbytheMindanaoPeoplesCaucus(MPC)withsupportfromthe

UnitedNationsDevelopmentProgramme

MPC IIBARMMTransitionMidterm ReviewIIi

Acknowledgment

WHETHERINTIMESOFWARORinthemiddleofapandemic,civilsocietyorganizationsandpeaceadvocates inMindanaohaveshown,timeandagain,thattheywillalwaysgotheextramiletopromotepeaceandprotectthegainsofthepeaceprocess.TheMindanaoPeoplesCaucuscouldnothavecompletedthis Rapid Midterm Review, in a timely fashion, without the indispensablecooperationofourmembersandpartnerswhoreadilyrespondedtotheurgentrequest for them to organize the Focused Group Discussions fromMaguindanao,LanaodelSur,NorthCotabatototheislandsofBasilan,SuluandTawi-Tawi.Withouteachoneofyou,MPCcouldnothavegatheredtheinputs,insights,andrecommendationsfromthecommunities.DeepgratitudegoestoNisaUlHaq,TulungLupahSug,SaveSuluMovement,BasilanAllianceofHumanRights Advocates, Bantay Ceasefire, GINAPALADTAKA, IMAN, UNYPAD,BawgbugAdvocates for Peace andHumanRights, Peacebuilders Community,SENTROngNagkaisaatProgresibongManggagawaandKilusangPagbabago.Similarly,MPCisgratefultotheleadershipoftheBARMM,particularlytheOfficeoftheChiefMinisterandtheCabinetandtheBangsamoroTransitionAuthorityfor granting us access to relevant data, information, reports and documentswhich helped the RapidMidterm Review Team navigate and understand thecomplexities,nuancesanddynamicsoftheTransitionPeriod.MPCwishes to commend theOfficeof thePresidentialAdviser on thePeaceProcess,theGPH-MILFPeacePanels,andtheJointNormalizationCommitteeforopeningyourdoorsandgivingusyourinsightsandprecioustimeforthemuchneeded interviews. Similarly, we acknowledge with deep appreciation thefundingandtechnicalsupportoftheUnitedNationsDevelopmentProgram.Above all, MPC is eternally indebted to our Rapid Midterm Review Team,namely, Amelita “Melot” Balisalisa Atillo, Joselito Libres, Attorney HananRomanda-Kahalan, Herbert Demos, and Jannette Demos whose collectiveknowledge,wisdom,experience,andtechnicalskillsaredirectlycommensuratetotheirdedication,commitmentandgenuinelovefortheBangsamoro.Shukran.Magsukul.Daghansalamat,AttorneyMaryAnnM.ArnadoSecretaryGeneralMindanaoPeoplesCaucus

MPC IIBARMMTransitionMidterm ReviewIIii

Tableofcontents

Page

Acknowledgment i

ExecutiveSummary vii

MainReport Introduction 1Rationale 1Objectives 1Methodology 2BARMM’SMoralGovernance 3TransitionGoal,Outcomes,andTimelines 4

BARMM’sMidtermTransitionMilestones 6TransitionIssuesandChallenges 27Where’sMyDividends:FeedbackfromtheGround 46Recommendations 54

TablesandCharts Table1 Scheduleofphasing-outofARMMpersonnel 9

Table2 NoticeofCashAllocationissued/releasedtoBARMMfortheseparationincentivestoARMMpersonnel9

Table3 Comparisonbetween2019GAAand2020BAAonselecteddepartmentsandministries11

Table4 ReservedBudgetinthe2020BAA 11Table5 BlockGrantBudgetbyMinistry 13Table6 NumberofDistrictsbyProvinceandPopulation 20

Table7ListofSixty-threebarangaysfromNorthCotabatoturned-overtoBARMM 21

Table8 Table8.FunctionsofIGRB 22Table9 CompositionofIntergovernmentalRelationsBoard(GRB) 23

Table10NoticeofCashAllotmentsreleasedbytheDBMtoBARMMfromJunetoSeptember2019

37

Table11 ARMMpovertyincidence% 47

Table12 Number of FGD participants by performance rating of the BARMMGovernmentandbylocation

53

Chart1 FlowoftheBlockGrant 37

Chart2FGDParticipants’LevelofSatisfactionofthePerformanceoftheInterimGovernmentduringtheMidtermTransitionPeriod 52

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Annexes1 ListofParticipantstotheKeyInformantInterviews2 ListofParticipantstotheFocusedGroupDiscussions3 LeagueofMunicipalitiesTawi-TawiChapter-ResolutionNo.5Seriesof20204 SangguniangPanlalawiganProvinceofMaguindanaoResolutionNo.2019-3495 SangguniangPanlalawiganProvinceofTawi-TawiResolution16-055Seriesof20206 PositionPaper:TheCreationoftheOfficeSettlerCommunities

Abbreviations4PS PantawidPamilyangPilipinoProgramADA AdvicetoDebitAccountAFP ArmedForcesofthePhilippinesAMBAG AyudangMedikalMulasaBangsamoroGovernmentARMM AutonomousRegioninMuslimMindanaoASP ApprovedStaffingPatternBAA BangsamoroAppropriationsActBARMM BangsamoroAutonomousRegioninMuslimMindanaoBEP BangsamoroExpenditureProgram(BEP)BFAR BureauofFisheriesandAquaticResourcesBIAF BangsamoroIslamicArmedForcesBIR BureauofInternalRevenueBLMI BangsamoroLeadershipandManagementInstituteBOC BureauofCollectionsBOI BoardofInvestmentsBOL BangsamoroOrganicLawBSDB BangsamoroSustainableDevelopmentBoardBTA BangsamoroTransitionAuthorityBWC BangsamoroWomenCommissionBYC BangsamoroYouthCommissionCAAP CivilAviationAuthorityofthePhilippinesCAAR ConsolidatedAnnualAuditReportCAB ComprehensiveAgreementontheBangsamoroCDA CooperativesDevelopmentAuthorityCfPM ChristiansforPeaceMovementCO CapitalOutlayCOA CommissiononAuditCOMELEC CommissiononElectionsCSC CivilServiceCommissionCSOs CivilSocietyOrganizationsCT4T CoordinatingTeamfortheTransitionCY CalendarYearDA DepartmentofAgricultureDAB DevelopmentAcademyofBangsamoroDAP DevelopmentAcademyofthePhilippinesDAR DepartmentofAgrarianReformDBM DepartmentofBudgetandManagementDENR DepartmentofEnvironmentandNaturalResourcesDepEd DepartmentofEducation

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DILG DepartmentofInteriorandLocalGovernmentDOST DepartmentofScienceandTechnologyDOT DepartmentofTourismDoTr DepartmentofTransportationDPWH DepartmentofPublicWorksandHighwaysDTI DepartmentofTradeandIndustryFGDs FocusedGroupDiscussionGAA GeneralAppropriationsActGOCCs Government-OwnedandControlledCorporationsGPH GovernmentofthePhilippinesICM InterimChiefMinisterIDPs InternallyDisplacedPersonsIEB IntergovernmentalEnergyBoardIFPB IntergovernmentalFiscalPolicyBoardIGRB IntergovernmentalRelationsBodyIIDB IntergovernmentalInfrastructureDevelopmentBoardIMT InternationalMonitoringTeamIPs IndigenousPeopleIRA InternalRevenueAllotmentJBZIC JoinBodyfortheZonesofJointCooperationKIIs KeyInformantInterviewsLCEs LocalChiefExecutivesLGRCB LocalGovernmentandRegionalCoordinationBureauLGUs LocalGovernmentUnitsLTFRB LandTransportationFranchisingandRegulatoryBoardLTO LandTransportationOfficeMARINA MaritimeIndustryAuthorityMBHTE MinistryofBasic,HigherandTechnicalEducationMFBM MinistryofFinance,BudgetandManagementMILF MoroIslamicLiberationFrontMILG MinistryofInteriorandLocalGovernmentMIPA MinistryofIndigenousPeoplesAffairsMNLF MoroNationalLiberationFrontMOA MemorandumofAgreementMOOE MaintenanceandOtherOperatingExpensesMPC MindanaoPeoplesCaucusMPs MemberofParliamentMSS MinistryofSocialServicesMSUS MindanaoStateUniversitySystemNAPOCOR NationalPowerCorporationNCA NoticesofCashAllocationNGOs Non-GovernmentalOrganizationsNLRC NationalLaborandRelationsCommissionNTC NationalTelecommunicationsOCM OfficeoftheChiefMinisterOPAPP OfficeofthePresidentialAdviseronthePeaceProcessOWWA OverseasWorkersWelfareAdministrationPCBF PhilippineCongress-BangsamoroParliamentForumPIA PhilippineInformationAgencyPOEA PhilippineOverseasEmploymentAdministration

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PPA PhilippinePortsAuthorityPS PersonnelServicesPUIs PersonsUnderInvestigationPUMs PersonsUnderMonitoringRA RepublicActREADi RapidEmergencyActiononDisasterIncidenceRLA RegionalLegislativeAssemblySAP SocialAmeliorationProgramSARO StatementAllotmentReleaseOrderSPMC SouthernPhilippinesMedicalCenterTABANG TulongAlaysaBangsamorongNangangailangan

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EXECUTIVESUMMARYRapidMidtermReviewoftheBangsamoroTransitionPeriodSeptember2020IntroductionHalfwaythroughtheTransitionPeriod,whereisBARMMnow?Has theBangsamoroTransitionAuthoritybeenable to carryout itsmandateand successfullyimplementitsprioritytasks?Moreimportantly,areweclosertotheachievementofthetargetsagreed upon in the peace agreement? Are the promised peace dividends already felt by theBangsamoropeople?This Rapid Midterm Review contains findings about the status of the priorities set to beaccomplished by the BTA, the gaps, challenges and problems encountered, the voices of thepeoplefromthelocalcommunities,andwhatremainstobedonebywayofrecommendations.ThisReportcoversthePoliticalorLegalTrack.TheNormalizationTrackwillbecoveredinanotherreport. In this report,MidtermTransitionPeriodmeant January25,2019up toSeptember30,2020,asprovidedforinSection1ArticleXVIoftheBangsamoroOrganicLaw(BOL).TheReviewTeamapproachedthereviewbyemployingrecordsreview,keyinformantinterviewsandfocusedgroupdiscussions.Thedraftcodes,reports,newsarticles,photographs,andotheravailabledocumentsandmaterialsprovidedvoluminous informationaboutwhat transpired intheBARMMduring themidterm transitionperiod. Twenty-eight (28) keypersonalities in theParliament,academiccommunityandcivilsocietyorganizationsprovidedinvaluableinformationthat helped the Review Team to appreciate better the context of the information theyconsiderately shared. Finally, this review sought the voices of 232 local people who are theultimatebeneficiariesof the creationof theBARMM,andaspeace stakeholders, are the firstpeoplewhowouldaskdaringlythequestion:where’smypeacedividend?ScopeandParametersoftheRapidMidtermReviewThe basis of this RapidMidterm Reviewwas, itself, the BangsamoroOrganic Law. Article XVIprovidesthefunctionsandprioritiesduringtheTransitionPeriod.Thus, thereviewspecificallylookedintothestatusofthefunctionsandprioritiesoftheBTA,namely:

1. Enactment of priority legislations such as the Administrative Code, Revenue Code,ElectoralCode,LocalGovernmentCode,EducationCode,andCivilServiceCode.

2. Enactment of the law to recognize, protect, promote and preserve the rights ofIndigenousPeoples

3. DeterminationofparliamentarydistrictsforthefirstregularelectionsforthemembersoftheParliament

4. OrganizationofthebureaucracyoftheBangsamoroGovernment5. FulltransferofpowersandpropertiesoftheARMMtotheBangsamoroGovernment,

exceptthoseproperties,land,andstructureslocatedoutsideoftheARMM.6. ThedispositionofthepersonneloftheARMM

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7. TransitionfromtheARMMtotheBangsamoroGovernment8. SubmissionandapprovalofTransitionPlan9. AppointmentoftheInterimOfficers10. AppointmentoftheInterimCabinet11. Setting-upofanindependent,merit-basedandcredibleplacementandhiringprocess

for all offices, agencies and institutions in the Bangsamoro Government and shallconsidergenderandethnicbalance

12. DispositionofPersonnelandAssetsofNationalGovernmentOfficesandAgencies13. OtherMattersthatmaybenecessaryfortheprotectionandwelfareoftheconstituents

ThisReviewkeenlyexamined theMoralGovernanceas the frameworkorprinciple setout toguideallactionsoftheBangsamoroGovernment.QuotingfromtheOathofMoralGovernanceitstates:“MoralGovernancereferstothesetofrules,practices,andprocessescompletelydevoidofalltheevilsofgraftandcorruption,andexplicitlydrivenbymoralprinciplesofutmostdedication,devotion,honesty,justice,andintegrity.”

ResultsandFindingsA. KeyAccomplishmentsViewedasthedefiningmomentforthefutureofMindanao,twoplebisciteswereheldonJanuary21andFebruary6,2019thatratifiedtheBangsamoroOrganicLaw(BOL).WiththeratificationoftheBOLcommencesthetransitionperiodfromARMMtoBARMM.BARMM’ssignificantmidtermmilestonesare:

1. EstablishedafullyoperationalandfunctioningBangsamoroTransitionAuthority(BTA)AsprovidedforintheOrganicLaw,theBTAservesastheinterimgovernmentintheBARMduringthetransitionperiod.TheMoroIslamicLiberationFront(MILF)leadstheBTA,withoutprejudicetotheparticipationoftheMoroNationalLiberationFront(MNLF).TheBTAhasbothlegislativeandexecutivepowersintheBARMMduringthetransitionperiod.Eighty(80)BTAmemberswereappointedbyPresidentDuterte,ofwhom41werenominatedbytheMILFand39bythenationalgovernment.Outof80members,67aremaleswhile13arefemales.ThetermofofficeofBTAcovers from March 29, 2019 until June 30, 2022 when democratic elections are held. Thelegislativepowersarevested intheBTAParliamentwhiletheexecutivepowerstothe InterimChiefMinisterwhowaslikewiseappointedbyPresidentDuterte.

2. ApprovedtheParliamentaryRules,Procedures,andPracticesThe first order of business of the Bangsamoro Transition Authority Parliament was to passResolutionNo.6entitled“ResolutionProvidingforParliamentaryRules,Procedures,andPracticesof the Bangsamoro Transition Authority of the Bangsamoro Autonomous Region in MuslimMindanao,” which provided for the legislative procedures in the conduct of all sessions,committeehearingsandmeetings,andothersimilaractivitiesoftheBTA.TheRulesaimed(a)toascertainthewillofthemajority,(b)topreservetherightsoftheminority,and(c)tofacilitatetheorderlyconductofbusinessintheBTA.

3.Organized the bureaucracy of the Bangsamoro Government during transition, theinstitution of a placement process for hiring of personnel during transition, including the

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setting-up of office and other institutions necessary for the continued functioning ofgovernmentanddeliveryofservicesintheBangsamoroAutonomousRegion,aswellas,thosenecessaryforthesmoothoperationsofthefirstelectedBangsamoroGovernmentin2022• Approved the Enhanced Transition Plan – 126 pages long it identified the new structural

frameworkoftheBARMMbasedontheprovisionoftheOrganicLaw,theprioritylegislationsneedtopavethewayforthesmoothtransitionfromARMMtotheestablishmentoftheBTA,theguidingprinciplesandpoliciesfortheBTA,anddescriptionsofinstitutionallinkagesandmechanisms for transition. It also included a general Timeline of the Activities and theAssignedMinistry/Officeresponsibleforeachactivity.

• Createdimportantofficesandinstitutions-TheBTAParliamentapprovedthecreationoffivenew offices, 15 ministries, and five other offices and institutions for the continuousfunctioningofgovernmentanddeliveryofsocialservices,andforthesmoothoperationsofthefirstelectedBangsamoroGovernmentin2022.

• Important legislations–BTAParliament legislatedtheadoptionoftheBangsamoroofficialflag,officialemblem,anditsnationalhymn.

• Approved theplacementprocess forhiringofpersonnelduring transition–TheapprovedTransitionPlanprovidedguidelinesontherecruitment,selectionandplacementofhumanresource in the Bangsamoro Government. These guidelines were issued to facilitate theprocessofhumanresourcerecruitment,selection,andplacementsandfillingupofpositionsintheApprovedStaffingPattern(ASP)asaresultofthegradualphasingoutofofficesintheARMMandthesubsequentcreationofnewofficesintheBTA.OnDecember30,2019,theBTAlaunchedaBangsamoroJobPortal.Jobseekerscannowsubmittheirresumeonline.

4. Phased-outtheARMMpersonnel-Separationincentiveswerereportedlygiventothe

affectedpersonnel.IntheARMMTransitionReport,therewere5,062employeesholdingplantillapositionsoutsideofthethreeARMMagencies(i.e.,Education,SocialServicesandHealth),asofSeptember2018.Thenumberofemployeesphasedoutvariedaccordingtodifferentsources.TheOfficeoftheAttorneyGeneralaccounted3,997plantillaemployeeswhilevariousmediaoutlets,including the government-owned Philippine Information Agency (PIA) cited about 6,000employeesaffectedbythephaseoutthattookplaceinOctoberuntilDecember2019.SeparationincentivesintheamountofP4.1billionwerereleasedforthe3,902affectedemployees.ReleasesoftheseparationincentiveshaddatesbetweenDecember2019untilMay2020.

5. Enacted the 1st Bangsamoro Appropriations Act - The enactment of the BAA onNovember30,2019isconsideredasawatershedachievementoftheBTA.ThisisthefirsttimethattheMoroleadershaveallcometogetherasaParliamentinordertoplanandallocatetheBlockGrantinaccordancewithwhattheyseeastheactualneedsoftheBangsamoropeople.Itisalsothefirstbudgetingprocess,undertheBlockGrantmechanism,wheretheBARMMcantrulyclaim that there is fiscal autonomy as they no longer have to beg and justify funds beforeCongress.ThetotalbudgetforFiscalYear2020isP65.3billion.

6. Released the Internal Revenue Allotment (IRA) - Eleven (11) municipalities thatpreviouslywerenotentitledtotheIRAfinallyreceivedtheirshareperNoticeofCashAllocationNo.NCA-LGRCB-20-00018intheamountofP274milliontocovertheirfirstquarterbudget.Thesemunicipalitiesare:DatuSalibo,DatuHoffer,Mangudadatu,Pandag,NorthernKabuntalan,Datu

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BlahSinsuatandDatuAnggalMidtimbanginMaguindanao;andAkbar,Al-Barka,HadjiMuhtamadandMohammad Ajul in Basilan. The release of the IRAwas indeed a welcome developmentbecausetheseLGUscannowidentifythemselvesasco-equalwiththeotherLGUs.

7. Transferred full powers and properties of theAutonomous RegionalGovernment in

MuslimMindanaototheBangsamoroGovernment-On26February2019,theARMMthroughits then Regional Governor Mujiv Hataman was officially turned over to the BangsamoroTransitionAuthority(BTA)throughits InterimChiefMinister AhodB.Ebrahim.AlongwiththeturnoveroftheARMMwastheARMMTransitionReportcomposedof34documentsdividedintonine (9) books. The books summarized pertinent information from the then ARMM set-up,includingassets, liabilities,personnelandplans,programs,andactivities, lessons learnedfromtheARMMexperience;andoptionsforthetransitiontotheBTA.

8.Prioritylegislationswerepartiallyenacted-AsofSeptember2020,theCabinethasfiled

threedraftcodestotheBTAParliament,namely:AdministrativeCode,LocalgovernmentCode,andCivilServiceCode.TheEducationCodeisalreadyapprovedbytheCabinetanditisreadyforfilingassoonastheParliamentwillconvene.TheElectoralCodeisexpectedtobefiledbefore2020ends.PrintedcopiesoftheRevenueCodeandElectoralCodearenotyetavailabletodateforpublicdissemination.

9. Promptly filed as one of the priority legislation, Bill No. 40, entitled: “An Act to

Recognize, Respect, Protect, Promote and Support the Rights of the Indigenous Peoples,Creating the Ministry of Indigenous Peoples Affairs, Establishing the ImplementingMechanisms,Appropriating Funds Therefore and forOther Purposes,” on January 23, 2020,jointlyauthoredbyMelanioU.UlamaandRomeoC.Saligawhobothrepresentthenon-MoroIndigenousPeoplesintheBangsamoroTransitionAuthority.ThiswaspresentedonFirstReadingduringthe31stSessionoftheParliamentonFebruary19,2020butuptonow,theBTAhasnotyettakenanyactionontheproposedlegislativemeasure.

10. AttheCabinetlevel,theParliamentaryDistrictsforthefirstregularelectionsofthe

members of the Parliament were already determined. The Parliamentary districts will beincorporatedintheElectoralCodeinasmuchasthesubjectmatteriselectionrelated.Thismatterwill requiremassive consultationsat the community level andamongpolitical clansand localgovernmentunits.

11. Turnedover63barangays/newareas to theBARMM–Sixty-three (63) barangays inNorthCotabatovotedtojointheBangsamoroduringtheplebisciteoftheBangsamoroOrganicLawon6February2019.On20November2019,aNorthCotabatoActingGovernorEmmylouMendoza led the turnover of the 63 barangays to Chief Minister Ahod Balawag Ebrahim. ADevelopment CoordinatingOffice has recently been created for the purpose of planning andimplementingtheprograms,projectsandactivitiesoftheBARMMministriesandofficesinthe63barangays.

12. Constituted the Intergovernmental Relations Body (IGRB) – Itsmandate, functions,

composition,jointsecretariat,andholdingofregularmeetingshavebeenapproved.Thenational

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governmentisrepresentedby10membersheadedbyFinanceSecretaryCarlosDominguezastheheadwhiletheBangsamoroInterimGovernmentisrepresentedby10officialsheadedBARMMEducationMinisterMohagherIqbal.TheOfficeofthePresidentialAdviseronthePeaceProcessservesthe jointsecretariatoftheIGRB.Theother intergovernmentalrelationsbodiesalreadyconstitutedare the Fiscal PolicyBoard, InfrastructureDevelopmentBoard, EnergyBoard, andJoint Body for Zonesof Joint Cooperation. The intergovernmental bodies that have yet to beconstituted are the Philippine Congress-Bangsamoro Parliament Forum and the Council ofLeaders. On the other hand, the Bangsamoro Parliament has yet to enact the BangsamoroSustainableDevelopmentBoard.

13. BARMM’sresponsestoCOVID19pandemicwashailedascommendable–Nolessthan

theChief implementerof theNationalActionPlanAgainstCovid-19CarlitoGalvez Jr. said thenewly-formedautonomousregionquicklyrespondedtothecountry’sbattleagainsttheCovid-19pandemic,notingthatthecasesintheregionarecomparativelylow.DespitebeinggeographicallyfarfromtheNationalGovernmenttheBangsamoroGovernmenthasbeenself-reliant indoinggreatwith its battle against the pandemic. It provided financial support to frontlineworkers,providedstrategicreliefoperations,allottedaugmentationfundforLGUs,enhanceditstestingcapacity,constructedisolationcenters,andimplementedSocialAmeliorationProgram.

14. Health services were made accessible and inclusive – Ayudang Medika Mula sa

Bangsamoro Government, popularly known as AMBAG, has two-pronged purposes; one toprovidemedicalassistancetoindigentandpoorBangsamororesidents,andsecondtoenhancetheaccessibilityofhealthservices,medicines,andmedicalprocedurestoitsconstituents.Asof30July2020,theAMBAGhasprovidedmedicalassistanceto5,799patientsthroughits10partnerhospitals. The BARMM has recently entered into a Memorandum of Agreement (MOA)withSouthernPhilippinesMedicalCenter(SPMC)tocovernotonlyMoropatientsbutalsoindigenousandChristianswhoneedthemedicalservices.

B. TransitionIssues,GapsandChallenges1. UnderstandingthecontextandcomplexityofthetransitionfromARMMtoBARMM-

Acloser lookat the tasksanddemandsof the transition fromtheARMMto theBangsamoroGovernmentwillshowthatitessentiallyencompassestwostages.One,thetransitionfromtheARMMtotheBTA.Two,thetransitionfromtheBTAtotheBangsamoroGovernment.AsofthisMidtermReview,thefirststageofthetransitionisalreadyaccomplishedwiththefullturnoverofpowers,functions,properties,assets,andrecordsoftheARMMtotheBTAthroughtheOfficeoftheChiefMinister.ThesecondstageoftransitionfromtheBTAtotheBangsamoroGovernmentismuchmorechallengingandcomplexas itnecessitatestheestablishmentofaparliamentaryformofgovernment.Onthisscore,boththeNationalGovernmentandBangsamoroGovernmentareembarkingonanuncharteredpoliticalexperimentationwhichisladenwithmorequestionsthananswers.

2. Challenges accompanying the transfer of powers and properties - The turnover andtransferofpowersandpropertiesduringtheperiodoftransitionunderthelawcoverstwolevels,

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namely,1.TurnoverofARMMtoBTAand2.Turnoveroftheregionaloffices,agenciesandGOCCsof thenationalgovernmentagencies toBARMM.AsofFebruary26,2019, theARMMalreadyturnedoverpowers, functions,offices,properties,personnel andassets to theBTAwhile theturnoveroftheregionalofficesbythenationalgovernmentisstillsaddledwithdifficultiesastodetails.Theseare:(1)thetransferofpowerfromARMMtoBARMMwaslegallydeficient;(2)nointer-agencycommitteewascreatedtoconducttherequiredinventory;(3)thepurchaseofrealpropertieslocatedoutsideoftheARMMhasalsonotyetmaterialized;(4)CotabatoCityhasyetto be turned-over to the Bangsamoro Government; (5) the transfer of national governmentofficesandagencies,includingtheirassetsandliabilitiestotheBARMMhasnotyetbeendone;andthephasingoutofARMMpersonnelandofficeshadsomecntroversies.

3. Challengesaccompanyingtheexercisesoffiscalautonomy-Section1,ArticleXIIofBOLstates that the Bangsamoro Government shall enjoy fiscal autonomy with the end view ofattaining economic self-sufficiency and genuine development. The first half of the transitionperiodoftheBangsamoroGovernment,however,hasfulloffiscalchallenges.Thetransitionwasnot only at the level of the BARMM, but, as well at the level of the DBM and DOF -twodepartmentsthatstillneedtoadjusttheircurrentsystemforthereleaseoftheBlockGranttomakeitconsistentwiththelaw.

While itwasunderstandable that theBARMM’s firstyearofoperationswas tieddownto theARMM’s2019Budgetapprovedbythe2019GAA,itsfiscalchallengeswerenumeroussuchas(1)lackoftransitionfundsattheonsetofthetransition;(2)theSpecialDevelopmentFundintendedfor rehabilitation, development and normalization process was not released in full to theBangsamoroGovernment; (3) the release of the BlockGrantwas in a circuitousway; (4) theNationalGovernmenthasyettoreleasetheadditionalfundsthatwillsubsidizeexpendituresfordevelopment projects and infrastructures in the BARMM; and lastly (5) the drafting of theRevenueCodehasnotyetbeendone.

4. Calls for extension of transition period – Without diminishing the remarkableperformancemadebytheBTAduringitsfirsthalfoftransitionperiod,undeniably,somuchofthetargetshaveyettobesetinmotion,asthesehavebeenpushedbackbymanyfactors,notablythe exceedingly complex process of establishing a parliamentary form of government whichdemandsthetransitioningofsystemsandprocessesbothattheregionalandnationallevelsofgovernment.There isagrowingrealizationthatthetimelinesprovidedintheBOLmaynotberealistic.Forexample,theAdHocJointBodytaskedtodefinethecoordinatesoftheZonesofCooperationintheSuluSeaandMoroGulfwithin30daysaftertheratificationoftheBOL.Ifwearetostrictlyabidewiththelaw,thisshouldhavebeencompletedinFebruary2019butasofnow,morethan18monthsfromratification,thesurveyhasnotstartedyet.AnotherexampleistheturnoverofNationalGovernmentagencies,officesandGOCCswhosemandateandfunctionsaretransferredtoornowvestedintheBARMM.Underthelaw,thisshouldhavebeencompletedwithin3monthsfromtheratificationof theBOLbuttheconcernedagencies,suchastheDA,DAR,DepEd,DILG,DPWH,DOST,DOT.LTFRB,LTO,DoTr,PPA,MARINAandCAAPhavenotyetcompletedtheturnover.Consultationswiththepeopleonthegroundhavebecomeaformidabletask.Consideralsothedelay intheexecutionoftherequiredactivitiesthatneedtobe jointlyimplementedwiththenationalgovernment.ThennowcomesthesituationwherebytheBTAis

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draggeddownbythepandemicandgiventhecompetingdemandshalfwayinthetransition,sometimelines provided for in the Organic law have become unrealistic that a correspondingadjustmentisbeingsuggested.Withtimeasthebiggestproblem,theLeagueofMunicipalitiesofthePhilippinesTawi-TawiChapterpassedaresolutionurgingCongresstoenactalawprovidingforasufficienttransitionperiodfortheBTAtoaccomplishandcompletethepurposeforwhichitwascreatedunderRA11054byamendingthefirstelectionoftheParliamentfrom9May2022to 12 May 2025. Similarly, the Sangguniang Panlalawigan of the Province of MaguindanaounanimouslypassedResolutionNo.2019-349,callingforanextensionofthetransitionperiodtoprovidetheBTAsufficienttimetoaccomplishitsprioritytasks.With2019goneand2020isabouttobefinishedthreemonthsfromnow,thereisnoconcreteassuranceyethow2021,thelastyearofthetransitionperiod,willfigureoutintermsofBTA’schancesingettingitstargetedoutcomesontrack.

5. Navigatingtheparliamentasanewformofgovernment-Afeelingofuncertaintyhasbeen looming in theminds of someBTAmembers.Arewe running a parliament? or,ArewerunninganRLAwithsomesemblanceofaparliament? - thesearetheopt-repeatedquestionssomeBTAmembersposedtothemselves.ItisapparentthattheBTAmembers,individuallyandcollectively are still adjusting and learning the ropes of the parliamentary system. Having nomodeltolearnlessonsfromwhatiscertainthoughisthattoinstitutionalizetheparliamentarysystemintheBARMMhasstillalongwaytogo.

6. Human capital shortfalls - The first challenge theMILF faced is its lack of governingexperience. Chairman Murad was quoted by MindaNews to have admitted that running agovernmentisthricemoredifficultthanrunningarevolution.MILFmustfaceuptothechallengethatthedesiredchangeitespousesdoesnothappenovernight;thatitnecessitatesorganizationalcapacities and competencies to run the Interim Government. Capacity mobilization ofBangsamoro leaders and professionals to take the frontlines of the interim ministerialgovernmenttoservetheimmediateneedsanddeliverablesoftheBTAwasinorder.However,withthephaseoutoftheARMMpersonneltherewerecomplaints,particularlyfromtheLGUsduetotheinterruptionofthedeliveryofbasicservices.Moreover,someofthoseoccupyingpositionsin the Interim Government are new to their position that theymust deal with the dauntinglearningcurve.

7. Barrageofapplications in the jobportal–The JobPortal is anattempt todevelopa

merit-basedsystemofhiringthatisfreefromthepressuresofpoliticalpatronage.Thishasbeenadoptedtoavoidrecommendationsandreferralsfrompoliticiansthatcouldundulyinfluencethehiringprocess.However,attendanttoitwassomeserioushiccupsastheJobPortalwasbarragedwithhugevolumeofapplicationsasofFebruary2020,causingmajordelayinthehiring.Thesheernumber of applicants proved to be a logistical nightmare as each applicant will have to beprocessed one by one in accordance to the standard recruitment and hiring process. Lack ofpersonnel will obviously impact on the implementation of programs and projects. Withoutpersonnelnoonecandeliverthebasicservicestothepeople.

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C. WHERE’SMyPeaceDividend?VoicesfromtheBangsamoroCommunitiesPeacedividendisunderstoodasaportionoffundsmadeavailablefornondefensespendingbyareductioninthedefensebudget(asafterawar).Themoneycannowbeutilizedfordevelopingor reconstructing the economy, build the destroyed houses, construct and repair roads andbridges,spendforeducation,financesocialservices,buildschools/hospitals/ruralhealthcenters,trainingcentersforlivelihood,andforimprovementofscienceandtechnology,amongothers.Peace dividend cannot be understated. After the cessation of hostilities or war, that peacedividendbecomesthelifebloodofthelong-sufferingBangsamoropeople.Thismidtermreviewhadtheparticipationofthelocalpeople.Beingstakeholdersofpeace,itisonlyimperativetoaskthemwhetherornottheyhavereceivedthepromisedpeacedividends.Twenty-one (21) focused group discussions were held across the BARMM provinces. Fivecommonquestionswereasked.First,theywereaskedtorevisittheirhopes,aspirations,orthebenefits they expected from the new government in the autonomous region soon after theratificationoftheBangsamoroOrganicLaw(BOL).Second,asfarastheyknew,whatweretheaccomplishmentsmadesofarbytheBARMMthathavebenefitedthem.Third,thechallengesordifficultiestheyknewthattheInterimGovernmentencountered,oriftheyhadissues,commentsorobservationsabouttheBangsamoroGovernmentthataffectedthefulfillmentoftheirhopes,dreams,oraspirations.Fourth,theywereaskedtogiverecommendationsastowhattheirsectororcommunitycandotoassisttheBangsamoroGovernmenttofulfillitsmandateanditspromiseofpeacedividends.Andlastly,fifth,theywereaskediftheyweresatisfiedwiththeperformanceoftheBangsamoroGovernment.The chart shows the level ofsatisfactionof the focusedgroupdiscussion participants of theper fo rmance o f the In te r imGovernment.As canbededucedfrom the chart, thereweremoreFGDparticipantswhowereFullySatisfied and Satisfied--that’scombined50%round-offorhalfofthe total FGDparticipants--withthe performance of the InterimGovernment compared to thosewhowereNot Satisfied andFullyNot Satisf ied --33% combinedround-offorone-thirdofthetotalparticipants.Notehoweverthat17.6%orlessthanone-fifthof theparticipants refusedtoanswer thequestion;maybe because it’s tooearly togive theiropinionortheyjustdidnotknowaboutwhat’sgoingonintheInterimGovernmentormaybetherewereotherreasonswhichtheypreferrednottosayinpublic.The tablebelowprovidesdetailed informationas to the locationof theFGDparticipants.Thelocations are instructive since thesemay provide clue and guidance in terms of validation orfollowthroughactivitiesthatconcernedagenciesmayplantopursue.ItbehoovesfortheBTAtoknowtheplaceswheretheyarestrongandweakintermsofthelocalpeople’sperceptions.

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FGDLocations FullynotsatisfiedNot

satisfied

Don’tknow/Refusedto

answerSatisfied Fullysatisfied

TotalResponses

1. DatuSaudiAmpatuan,Maguindanao 7 3 102. Butig,LanaodelSur 4 6 103. Malabang,LanaodelSur 1 8 3 124. MarawiCity 1 6 4 2 135. CotabatoCity 3 1 4 86. DatuPiang,Maguindanao 5 2 1 87. Guindulungan,ShariffAguak,Maguidanao 4 2 5 4 158. Albarka,Basilan 3 2 3 1 99. Buldon/Barira,Maguindanao 3 2 4 1 1010. Tawi-Tawi1 1 3 5 1 1011. Tawi-Tawi2 2 7 1 1012. LamitanCity,Basilan 2 8 3 1313. Midsayap,NorthCotabato 4 5 2 1114. Pikit,NorthCotabato 1 4 5 1015. Kabacan,NorthCotabato 1 4 5 5 1516. DatuPaglas,Maguindanao 15 3 1817. SouthUpi,Maguindanao 2 3 5 1018. NorthUpi,Maguindanao 2 2 2 4 1019. Jolo,Sulu1 2 3 5 1020. Jolo,Sulu2 1 3 6 1021. Indanan,Sulu3 8 1 1 10

Total 16 60 41 80 35 232

Percent 6.9 25.9 17.6 34.5 15.1 100.0

RecommendationsMindanao Peoples Caucus respectfully submits its recommendations for information andconsideration to the various peace stakeholders, especially to the BTA/BARMM, NationalGovernment,Congress,GPH-MILFPeaceMechanisms,andtheinternationalcommunity.Theseareenumeratedbelow:1. Extend theperiodof transition for another three years. Thiswould grant bothNational

Government and the Bangsamoro Transition Authority (BTA) sufficient time to fullyaccomplish their priority tasks and duties especially those that need to be jointlyimplementedwithnational government counterparts and indue regardwith thedifficultdemands of the normalization process and the larger context of the ComprehensiveAgreementontheBangsamoro(CAB)implementation;

2. Accelerate the drafting and final enactment of Administrative Code, Local GovernanceCode,EducationCode,CivilServiceCode,ElectoralCode,RevenueCodeandtheIPCodeand set actual schedules and timeline their passageandapproval,without sacrificing thedemocraticrequirementsforconsultationsandconsensus-buildingamongtheMoroleaders,constituentsandstakeholders;

3. InstitutionalizemoralgovernancebycreatinganindependentAnti-CorruptionOfficethat

reportsdirectlytotheBangsamoroParliamentwithcomprehensivepolicies,strategiesandmechanismforimplementation,monitoringandaccountability;

4. Expeditehiringofpersonnelandexploreotherrecruitmentmodalitiesespeciallyforthose

Ministries, Offices and Special Projects concerned with the implementation of tangibleprojectsandthedeliveryofbasicservicesforcommunitiesandtargetbeneficiaries.Recruitconsultants and experts for urgent tasks that require specialized trainings, competence,experience, highly technical and scientific knowledge. Heed the call of the Bangsamoro

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professionalsandreturningscholarstoopenopportunitiesforthemtoservetheimmediateneedsandthedeliverablesoftheBTA;

5. Developandimplementastrategic/focusedsetoflearninganddevelopmentinterventions

that will build on the current organizational capacities and competencies of the InterimGovernment. In this regard, the role theDevelopment Academy of Bangsamoro (DAB) isessentialinasmuchasitisthehumancapitaldevelopmenttrainingandresearcharmoftheBangsamoroGovernment.Itwouldbeideal ifDABworksintandemwiththeBangsamoroLeadershipandManagementInstitute(BLMI)sincethelatterwasalsoprimarilyorganizedmodeledaftertheDevelopmentAcademyofthePhilippines(DAP).

6. Encourageinternationalfinancialaidanddonorsupportforthetransitionperiodandset-

up theBangsamoroNormalizationTrustFund through the speedy issuanceof theSpecialPresidentialAuthority;

7. ConvenetheInter-AgencyCommitteetoimplementtheconductofrequisiteinventoryto

ensurethattheliabilitiesoftheARMMunderlaw,contracts,orobligationswillbeassumedby theNationalGovernment. This necessitates the conduct of actual inventory of all theassetsstatedintheSummaryReportoftheARMMtodeterminetheirstatusandexistenceasbasisfortheconsequentaccountabilityoftheBTA;

8. Immediately release the full amount of Social Development Fund to the Bangsamoro

TreasurytocovertherequiredannualFiveBillionpesosallocationforyears2019and2020,respectively. Adopt guidelines (e.g., BARMM and DBM Joint Memorandum) which shallprovideforthedateandmannerofreleaseoftheSpecialDevelopmentFund;

9. ReviewandimprovethemannerofreleaseoftheannualBlockGranttomakeitconsistent

with the fiscal autonomy standards for direct and comprehensive release. Increasetransparency and representationofBARMM in thedeterminationof the5%netnationalinternalrevenuetaxcollectionoftheBIRandBOCtodeterminetheaccuracythereof;

10. Address the high expectations of the people and deliver the peace-dividends (i.e.

scholarships,employment, livelihood, farming inputs, toolsandequipment,capitalization,housingetc.)asquicklyaspossibleandonamassivescaletocreaterealandvisiblechangesontheground.Thiscanbepursuedinpartnershipwithlocalcivilsocietyorganizations,NGOs,POs,cooperativesandtheSocialWelfareCommittee;

11. Set-up formal mechanisms that will strengthen and concretize the participation and

involvementofnon-Moro indigenouspeoplesand settlers communities in thedraftingoflawsandpolicies,planning,andimplementationofspecificIPprovisionsintheBOLintendedfortheirprotectionandCreatetheOfficeoftheSettlerCommunities;and,

12. Have a good strategic communication plan. Consider the audience, messages, and the

appropriatechannelsofcommunication.Moreso,strikeabalancebetweensocialmediaandtheculturalformsofinformationexchangewhicharemorepracticalandeffectiveinremoteareaswith no access to internet. In particular to the Bangsamoro communities,many ofthosewhojoinedinthefocusedgroupdiscussionsarenotawareofwhat’sgoingonwiththeBARMM.

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