RAPID MIDTERM REVIEW OF THE BANSAMORO TRANSITION … · 2020. 12. 4. · rights of Indigenous Peoples BTA 10. Priority bill enacted a. Bangsamoro Administrative Code BTA b. Bangsamoro

MPC IIBARMMTransitionMidterm ReviewII0

RAPIDMIDTERMREVIEW

OFTHEBANSAMORO

TRANSITIONPERIOD

October2020


INTRODUCTION

Rationale

REPUBLIC ACT 11054, ALSO KNOWN AS an Act Providing Organic Law for the Bangsamoro

Autonomous Region in Muslim Mindanao, instructs that the transition period for the

establishment of Bangsamoro Autonomous Region in Muslim Mindanao (BARMM) shall

commenceupontheratificationofBangsamoroOrganicLawandwillendwiththeelectionand

qualificationoftheChiefMinisterunderthefirstParliamentinwhichtheregularelectionwillbe

synchronized with the 2022 national elections. With this timetable enshrined by law, it is

understoodthatthetransitionperiodwillbefromJanuary25,2019toJune30,2022.

Almost half-way in the transition period, civil society organizations, peace advocates and

grassroots communities see the need to conduct an independent Midterm Review on the

progressoftheTransitionPeriodtohelpensurethattheBangsamoroTransitionAuthoritywillbe

abletocarryoutitsmandateandsuccessfullyimplementtheletterandspiritoftheBangsamoro

OrganicLaw.More importantly, there isaneedtopreservethegainsof thepeaceprocessby

ensuring that the promised socio-economic and political reforms will actually be installed,

operationalizedandfeltbythepeople.

The conduct of a Rapid Midterm Review becomes more urgent with the coronavirus global

pandemicwhich pushedmillions of people to economic dislocation and abject poverty.With

national government grappling with the devastating economic consequences of prolonged

shutdownsandthecollapseofworldtrade,theBangsamoroissimilarlyfacedwiththeburdenof

proceedingwiththetransitionperiodundera“newnormal”wherepublichealthandsafetyof

theMoropeoplewillbeparamountwhileatthesametimeprovidetheeconomicstimulusthat

willhelpthemrecoverfromtheeconomicshock.

ThisRapidMidtermReviewpresentsagreatopportunityfortheBTAandstakeholderstopause

andrevisittheaccomplishments,discussproblems,makethenecessaryadjustments,andcome

upwithviablesolutionstoimproveandfast-tracktheimplementationofthetransitionmindful

thatthiswillhavetobeaccomplishedinapost-pandemicworldthatdemandsanewnormalway

oflife.

Objectives

TheRapidMidtermReviewisguidedbythefollowingobjectives,namely:

• DeterminethemidtermstatusoftheprioritiessettobeaccomplishedbytheBTA;• Identifygaps,keychallengesandproblemsencounteredbytheBTAandvariousBARMM

agenciesintheimplementationofthemandatedprioritiestobeimplementedduringthe

transitionperiod;and,

• Propose doable actions and recommendations to accomplish the remaining targetedpriorities.


Methodology

Dataweregenerallygeneratedthroughrecordsreviewandsupplementedbyselectinformants

bymeansofface-to-faceandvirtualinterviewsandfocusedgroupdiscussions.Collectedfromthe

recordsreviewwerecopiesofthecodes,enactedlaws,cabinetreports,andpublishedmaterials,

andnewsarticlesintheinternet,amongothers.Thesewerethebasesfortrackingthestatusof

thesetprioritiesasprovidedforintheBOL.

Thirty (30) key personalities were interviewed which were conducted through face-face and

virtual(Zoom)interviewsbetweenthemonthsofAugustandSeptember2020.Mostofthemare

members of the BTA and the Government of the Day. They provided information about the

accomplishmentsof theBangsamoroTransitionAuthority/BangsamoroAutonomousRegion in

MuslimMindanao(BARMM),thechallengesencounteredinpursuingthetargetedpriorities,and

itsplansfortheremainingunaccomplishedtargets.(Annex1.ListofKIIParticipants)

Participantsofthefocusgroupdiscussionswereaskedtorevisitthehopesorbenefits--alsoknown

aspeacedividends--theyexpectedfromthecreationoftheBARMMasthenewpoliticalsystem

ofgovernanceintheBangsamororegion.Likewise,theywerequeriedabouttheirknowledgeof

theBARMM’saccomplishments so far, and their ideasaboutwhat they can contribute to the

realizationoftheirhopesandthatoftheBangsamoropeople.1Atotalof232participantsjoined

theFGDsconductedbetweenthemonthsofAugustandSeptember2020.Theywereselected

fromthesectorsofwomen,youth,business,internallydisplacedpersons,andIndigenousPeoples

(Annex 2. List of FGD Participants). As BARMM constituents, they represent the ultimatebeneficiariesofthepeacedividendspromisedtothembytheGovernment,theMILF,civilsociety

organizationsandtheinternationalcommunityinthelargercontextofthepeaceprocess.

1 FGDmoderatorsanddocumenterswerebriefedonhow tocarryout theactivity so that therewasuniformityofapproachandprocessacrossallfocusgroupdiscussions.Notethathealthprotocolssuchassocialdistancing,wearingoffacemasks,andhandsprayingofalcoholwerestrictlyobserved.


BARMM’sPrincipleofMoralGovernance

NOLESSTHANMINISTERMOHAGHERIQBALofMinistryofBasic

Higher and Technical Education, Bangsamoro Autonomous

Region in Muslim Mindanao; and Chairman, Moro Islamic

LiberationFrontPeacePanelconciselyputit:BARMM’sprinciple

of Moral Governance is “inspired by the teachings on Islamic

Leadership” and “shall guide all actions of the Bangsamoro

government.” In a nutshell, he added, this principle is about

employingethicalvaluesingovernanceexpectedofeveryleader

orofficialwhomusteffectivelyandefficientlyimplementlawful

programsforpeople’sgeneralwelfare.Moreover,“commitment

to Moral Governance means shunning all forms of graft and

corruption. Corruption, in any form, is unacceptable to the

BARMM. Itunderminesgoodgovernanceby subverting formal

and legal processes. It erodes the institutional capacity of

governmenttodeliverservicesiflawfulproceduresareviolated,

andpublicofficesareboughtandsold. Itbetraysthetrustand

confidenceoftheBangsamoropeoplewhenpreciousresources

aresiphonedoff.IftheBARMMfailstoupholdMoralGovernance

and tolerate corrupt practices in this region, we would have

wastedfiftyyearsofourstruggleforpeace,justice,andtheright

toself-determination.”2

MoralGovernanceasanewframeworkofgovernanceconveysastrongandappealingmessage

that the BARMM under the leadership of the MILF will run an ethical, moral and honest

government.Ordinarypeopleinthecommunitycanreadilycomprehenditsmeaningbasedon

theirown Islamicvaluesandteachingsofwhat is rightandwrong.Theoath-takingbeforethe

Qur’anonmoralgovernancestrengthenedthecommitmentofeachandeverymemberofthe

BTAincludinglocalchiefexecutivestofightagainstcorruptionandcleanthegovernment.While

itistooearlytomeasurethesuccessofmoralgovernance,ithasalreadysucceededininstillinga

zero-toleranceagainstcorruptionandsettingthebarhigherforpublicserviceinthenewpolitical

entity.

2loc.cit.

MoralGovernancereferstothesetofrules,

practices,andprocessescompletelydevoidofall

theevilsofgraftandcorruption,andexplicitly

drivenbymoralprinciplesofutmost

dedication,devotion,honesty,justice,and

integrity.

(Source:DerivedfromtheOathofMoralGovernance)


TransitionGoal,Outcomes3andTimelines

IT IS IN THE SPIRITOF the principle of GoodGovernance that theOffice of the Interim Chief

MinisterthroughtheCoordinationTeamfortheTransition(CT4T)totheBangsamoroTransition

Authority (BTA) crafted the Transition Plan, 2019-2022. The Goal, Outcomes and Timelines

statementsareindicativeoftheBARMMgovernment’sIslamicleadership.

GoalTHE TRANSITION PERIOD IS AIMED at ensuring smooth transition from ARMM Regional

Government to BangsamoroGovernment. Specifically, at the end of the three-year transition

period,thefollowinghavebeenaccomplished,namely:

Outcomes4 Outcomes ResponsibleAgency1. ParliamentaryRulesandProceduresdraftedandapproved BTA2. SubmissionofTransitionPlanthatcontainstheproposed

organizationalplan,aswellas,thescheduleofimplementationOfficeofInterimChief

Minister3. TransitionPlanapproved BTA4. OrganizationofthebureaucracyoftheBangsamoroGovernment

duringtransition,theinstitutionofaplacementprocessforhiringofpersonnelduringtransition,includingthesetting-upofofficeandotherinstitutionsnecessaryforthecontinuedfunctioningofgovernmentanddeliveryofservicesintheBangsamoroAutonomousRegion,aswellas,thosenecessaryforthesmoothoperationsofthefirstelectedBangsamoroGovernmentin2022

BTA

5. CreationofofficesmandatedbytheBOL BTA

6.

FulltransferofpowersandpropertiesofARMMtoBARMM,exceptthoseproperties,landandstructureslocatedoutsideoftheAutonomousRegioninMuslimMindanao,owned,controlled,administered,orinthepossessionoftheAutonomousRegionalGovernmentinMuslimMindanao,shallbepurchasedbytheNationalGovernmentatapricetobedeterminedthroughtheintergovernmentalrelationsmechanismwithinone(1)yearfromtheratificationoftheBOL

BTA/Ministriesandotherconcernedoffices/agencies

7. Parliamentarydistrictsdetermined BTA8. Transferofnationalgovernmentpropertiesandassets BTA9. Enactmentoflawtorecognize,protect,promoteandpreservethe

rightsofIndigenousPeoplesBTA

10. Prioritybillenacted a. BangsamoroAdministrativeCode BTA b. BangsamoroElectoralCode BTA c. BangsamoroRevenueCode BTA d. BangsamoroLocalGovernment BTA

3Strictlyspeaking,ifwefollowthetechnicaldefinitionofOutcomes,theenumeratedthereinareconsideredOutputs

4Source:EnhancedTransitionPlan2019-2022fortheBangsamoroTransitionAuthority(BTA).SeeTable2.TransitionPlanMatrix,2019-2022,pages100-101.


Outcomes ResponsibleAgency e. BangsamoroEducationCode BTA f. CivilServiceCode BTA

Timelines5

Activity ResponsibleOffice(s)Target

Date/Timeline1 ApprovaloftheTransitionPlan BTAParliament June20192 Proposal/PresentationofStaffing PerMinistry/Office/Agency June2019

3PatternswithComputationofSalaries,BenefitsandAllowancesApprovalofMinistry/Office/AgencyStaffingPatterns

Cabinet/BTAParliament June2019

4 Preparationof2020BTA-BARMMBudgetOfficeoftheInterimChiefMinister/Ministries/Offices/Agencies

June2019

5 ProfilingofPersonnelComplement PerMinistry/Office/Agency June20196 ComputationofSeparationIncentives PerMinistry/Office/Agency June2019

7

CoordinativeactivitieswithHousesofCongressforInclusionofAnnualBlockGrantandSpecialDevelopmentFundinthe2020GeneralAppropriationsAct(GAA)andtheiravailability

OfficeoftheInterimChiefMinister/BTAParliament/MinistryofFinance,Budget&Management

July2019

8SettingupofHELPDeskforprocessingofseparationincentives

OfficeoftheInterimChiefMinister

July2019

9Finalizationofbatchesofphasingoutbasedonagreedcriteriaandapprovedschedule

PerMinistry/Office/Agency July2019

10SubmissionofDEMRequestforReleaseofSeparationIncentives

OfficeoftheInterimChiefMinister/BTAParliament

July2019

11Deliberationsof2020BTA/BARMMBudget

BTAParliament July-Nov2019

12 Approvalof2020BTA/BARMMBudget BTAParliament Nov2019

13Implementationofthephasingoutofpersonnel(bybatch)

PerMinistry/Office/Agency Oct-Dec2019

14ActivationoftheRecruitment,SelectionandPlacementProcessintheBTA-BARMM

PerMinistry/Office/Agency Dec2019

15PublicationofVacantPositionsintheBTA-BARMM PerMinistry/Office/Agency Dec2019

16AcceptanceofApplicationsforEmployment PerMinistry/Office/Agency Dec2019

17 MassiveHiringprocess PerMinistry/Office/Agency Dec2019

18 LegislationofPriorityCodes BTAParliamentSept2019toFeb

2020

5Source:EnhancedTransitionPlan2019-2022fortheBangsamoroTransitionAuthority(BTA).SeeTable1.ProposedTimeline,pages97-98


BARMM’sMidtermTransitionMilestones

VIEWEDASTHEDEFININGMOMENTFORthefutureofMindanao,twoplebisciteswereheldon

January21andFebruary6,2019thatratifiedtheBangsamoroOrganicLaw(BOL).Citizensofthe

provincesofBasilan(except IsabelaCity),LanaodelSur,Maguindanao,SuluandTawi-Tawi,as

wellasMarawiCity,LamitanCity,CotabatoCity,and63barangaysinCotabatoProvincedecided

to be part of the Bangsamoro Autonomous Region inMuslimMindanao (BARMM).With the

ratificationoftheBOLcommencesthetransitionperiodfromARMMtoBARMM.

1. DraftedandapprovedtheParliamentaryRulesandProceduresThefirstorderofbusinessoftheBangsamoroTransitionAuthoritywastopassResolutionNo.66

entitled “Resolution Providing for Parliamentary Rules, Procedures, and Practices of the

BangsamoroTransitionAuthorityoftheBangsamoroAutonomousRegioninMuslimMindanao.”

Adoptedon 21May 2019 entitled the “Parliamentary Rules, Procedures, and Practices of the

BangsamoroTransitionAuthority,”itprovidedforthelegislativeproceduresintheconductofall

sessions, committeehearings andmeetings, andother similar activitiesof theBTA. TheRules

aimed(a)toascertainthewillofthemajority,(b)topreservetherightsoftheminority,and(c)

tofacilitatetheorderlyconductofbusinessintheBTA.

ThelatestamendmentsontheRuleswasResolutionNo.70,entitled,“ResolutionApprovingthe

EnhancementMadeby the Committee onRules on the Parliamentary Rules, Procedures, and

Practices of the Bangsamoro Transition Authority of the Bangsamoro Autonomous Region in

MuslimMindanao(BTA-BARMM)”wereadoptedon17June2020.TheRulesfacilitatedtheorder

andpredictability in the conduct of thebusiness of theBTA. TheCommitteeonRules has 29

memberswithMajorityFloorLeaderLanangT.Ali,Jr.asChairpersonandMinorityFloorLeader

LaisaM.AlamiaasVice-Chairperson.

2. EstablishedBangsamoroTransitionAuthority(BTA)ParliamentAlsoknownastheinterimBangsamoroParliament,itisthelegislatureofthetransitionalregional

governmentofBangsamoro.ItwasfirstconstitutedonFebruary22,2019duringwhichthefirst

setofmemberstooktheiroathofoffice.OnMarch29,theinauguralsessionbeganandendedon

April23,2020.ThesecondregularsessionbeganonJune16,2020.OfficiallycalledMPs,theBTA

Parliamentiscomposedof80appointedmembers;41werenominatedbytheMILFand39bythe

nationalgovernment.Outof80members,67aremaleswhile13arefemales.Thetermofoffice

ofBTAParliamentcoversMarch29,2019untilJune30,2022whendemocraticelectionsareheld.

As the interimBangsamoroParliament and interimBangsamoroGovernment, it exercises the

legislative and executive powers in the BARMM during the transition period. The executive

authorityisvestedintheinterimChiefMinister.TheBOLalsomandatedtheBTAParliamentto

6ResolutionProvidingforParliamentaryRules,Procedures,andPracticesoftheBangsamoroTransitionAuthority,BangsamoroTransitionAuthorityResolutionno.6,asamended,[BARMMBTAResolutionNo.6,asamended],BTAParliament,1stReg.Sess.(May21,2019).


prepareandcreatethenecessaryinstitutionsandmechanismsaspartoftheestablishmentofthe

BangsamoroGovernment.7

3. Organized the bureaucracy of the Bangsamoro Government during transition, theinstitutionofaplacementprocessforhiringofpersonnelduringtransition,includingthe

setting-up of office and other institutions necessary for the continued functioning of

governmentanddeliveryofservices intheBangsamoroAutonomousRegion,aswellas,

thosenecessaryforthesmoothoperationsofthefirstelectedBangsamoroGovernmentin

2022

Theorganizationof thebureaucracyof theBangsamoroGovernment8madesignificantstrides

with the appointment of a highly functional Interim Cabinet and Parliament. Pending the

enactmentoftheAdministrativeCode,theBARMMiscurrentlyadoptingtheinterimstructure

basedontheapprovedEnhancedTransitionPlan.Necessaryofficesandinstitutionswerecreated

forthecontinuousfunctioningofgovernmentanddeliveryofsocialservices,andforthesmooth

operationsofthefirstelectedBangsamoroGovernmentin2022.

ThreeimportantlegislationswereenactedduringthefirstorderofthedayoftheBTAParliament.

One,BangsamoroAutonomyActNo.1–AnActAdoptingtheOfficialFlagof theBangsamoro

Autonomous Region in Muslim Mindanao. Two, Bangsamoro Autonomy Act No. 2 – An Act

Adopting theOfficial Emblem for the Bangsamoro Autonomous Region inMuslimMindanao.

Three,BangsamoroAutonomyActNo.7–AnActAdoptingtheNationalHymnoftheBangsamoro

AutonomousRegioninMuslimMindanao.

• EnhancedTransitionPlanwassubmittedbytheinterimChiefMinisteranddulyapprovedbytheBTAParliament–TheBOLspecificallytaskedtheinterimChiefMinistertosubmitto

theBTAParliament,withinthefirst60daysofthetransitionperiod,aTransitionPlanthat

shallcontainalsotheproposedorganizationalplanandthescheduleofimplementationas

well. It was drafted by the Coordinating Team for the Transition (CT4T), composed of

governmentandMILFpeople.Itwastimelysubmittedon30May2019.TheBTApasseda

resolutionformallyapprovingtheTransitionPlaninaspecialsessiononJune17,2019.9Note

thattheoriginaltimelinefortheapprovalofTransitionPlanwasJune2019.

As indicated in the Executive Summary, the Transition Plan identified the new structural

frameworkoftheBARMM,basedontheprovisionoftheBOLtakingintoconsiderationthe

existingstructure,budget,andotherrelevantfeaturesoftheARMM.Alsoconsideredwere

prioritylegislationsthatwouldpavethewayforthesmoothtransitionfromARMMtothe

establishmentoftheBTA.10AlsoprovidedintheTransitionPlanwereguidingprinciplesand

policiesfortheBTAanddescriptionsofinstitutionallinkagesandmechanismsfortransition.

7Source:EnhancedTransitionPlan,2019-2022fortheBangsamoroAuthority,page3.8Paragraph(d)Section2ArticleXVI. 9OnthesamedaythattheTransitionPlanwasapproved,theBTAParliamentalsoapprovedBTABillNo.4,AnActAppropriating and Authorizing the Disbursements of P10.1 billion for Public Works and Other Purposes. Source:https://bangsamoro.gov.ph/news/latest-news/bta-approves-proposed-transition-plan/10Source:EnhancedTransitionPlan,2019-2022fortheBangsamoroAuthority,pageii.


It also included a general Timeline of the Activities and the Assigned Ministry/Office

responsibleforeachactivity.TheTransitionPlaniscontainedin126pagesanddividedinto

fivechapters,towit:

Chapter1–Introduction

Chapter2–TheBangsamoroTransitionAuthority

Chapter3–TransitionMechanisms

Chapter4–StructureandPersonnel

Chapter5–AgenciestobeCreated

• ImportantofficesandInstitutionswerecreated--TheGovernmentoftheDayproposedthe

creationofimportantofficesintheBangsamoro.TheBTApassedresolutionsapprovingthese

offices:

o Bangsamoro Autonomy Act No. 4 – An Act operationalizing the establishment ofBangsamoroHumanRightsCommissionprovidingforitsmandate,powersandfunctions

ofBangsamoroHumanRightsCommission,appropriatingfundstherefor,andforother

purpose;

o BangsamoroAutonomyActNo.5–AnActcreatingtheBangsamoroAttorney-General’sOffice, defining its functions and powers, appropriating funds therefor, and for other

purpose. The office was established with the appointment of the Attorney-General,

lawyers,andstaff.

o BangsamoroAutonomyActNo.6–AnActestablishingtheBangsamoroSocio-EconomicDevelopmentPlanningSystem,providingfundstherefor,andforotherpurposes;

o BangsamoroAutonomyActNo.8–AnActcreatingtheBangsamoroWomenCommissionoftheBARMM,providingfor itspowers, functionsandcompositionandappropriating

fundstherefor;

o BangsamoroAutonomyActNo.10–AnActcreatingandestablishingtheBangsamoroYouth Commission, defining its powers, functions and responsibilities, appropriating

fundstherefor,andforotherpurposes.

o Committee Bill No. 52, entitled “An Act creating Bangsamoro Sports Commission,providingforitsmandate,powers,andfunctions,appropriatingfundstherefor,andfor

otherpurposes.

TheenactmentoflegislationscreatingtheHumanRightsCommission,BangsamoroWomen

Commission,andBangsamoroYouthCommissiontoformpartoftheInterimCabinetreveals

a highly progressive view on the important role of human rights, gender, and youth.

NotwithstandingthefactthatthesearenotmandatedprioritylegislationfortheBTA,ithas

showedthattheconcernforhumanrightsandtheprotectionofwomenandyouthareequally

significantbypassingtheseevenaheadoftheprioritycodes.

• ARMMpersonnelgraduallyphasedout --Separation incentiveswere reportedlygiven totheaffectedpersonnel.IntheARMMTransitionReport,therewere5,062employeesholding

plantillapositionsoutsideofthethreeARMMagencies(i.e.,Education,SocialServicesand


Health)asofSeptember2018.11Notethatthisfigurevariesaccordingtodifferentsources.

TheOfficeoftheAttorneyGeneralaccounted3,997plantillaemployeeswhilevariousmedia

outlets, including the government-ownedPhilippine InformationAgency (PIA) cited about

6,000employeestobeaffectedbytheplannedphaseout.

BeginningNovember2019, theDepartmentof

Budget and Management had issued the

necessary Notices of Cash Allocation (NCA) to

cover the separation incentives of those

affected employees. The NCA is the cash

authority issuedbytheDBMtocoverthecash

requirements of the agency’s program and

projects.Theseareutilizedwhenagenciesissue

checksorAdvicetoDebitAccount(ADA)against

their cash authority. NCA utilization also

includesoutstandingchecks,orchecksissuedby

theagencybutnotyetencashedatthebankby

thecreditor/s.12

Table2showsthe14NCAsissuedbytheDBMforfiscalyears2019and2020,respectivelyin

theamountofP4,100,367,782(fortheseparationincentivesof3,902affectedemployees.

NotethattherearealsootherNCAsissuedthatcoveredtheterminalbenefitsofemployees

butarenotincludedinthisreport.

Table2.NoticeofCashAllocationissued/releasedtoBARMMfortheseparationincentivestoARMMpersonnel

2019Releases13

NCANo.Amount(inpesos)

ApprovedDate

ReleasedDate

Department AgencyOperatingUnit

EmployeesCovered

NCA-BMB-D-19-0024898

267,973,065 11/26/2019 12/03/2019 BARMM BARMM BARMM 267

NCA-BMB-D-19-0025121


NCA-BMB-D-19-0025339


NCA-BMB-D-19-0026435


Total 1,346,201,742 1,1452020Releases14

NCA-BMB-D-20-0001645

290,660,339 2/06/2020 2/10/2020 AllocationstoLGUs

BARMM 570

NCA-BMB-D-0002111


BARMM 310

NCA-BMB-D-0003297


BARMM 231

11ARMMTransitionReportBook1:MainReport,p.3912https://www.dbm.gov.ph/index.ph/secretary-s-corner/press-releases/list-of-press-releases/1384-nca-utilization-reaches-60-in-january-201913https://www.dbm.gov.ph/wp-content/uploads/NCA/2019/NCA-2019.pdf14https://www.dbm.gov.ph/index.php/programs-projects/notice-of-cash-allocation-nca-listing

Table1.Scheduleofphasing-outofARMMpersonnel

Batch NumberofEmployees

DateofSeparation

FirstBatch 1,003 31Oct2019SecondBatch 1,042 30Nov2019ThirdBatch 1,930 31Dec2019Others 22 Total 3,997


NCA-BMB-D-0003397

1,130,212,782 3/16/2020 3/20/2020 AllocationstoLGUs

BARMM 959

NCA-BMB-D-0004429


BARMM 287

NCA-BMB-D-0004745


BARMM 386

NCA-BMB-D-20-0005950


BARMM 3

NCA-BMB-D-20-0008315


BARMM 5

NCA-BMB-D-20-0008656


BARMM 1

NCA-BMB-D-20-0009165


BARMM 5

Total 2,754,166,040 2,754

Total2019&2020 4,109,376,397 3,902

• BTAapprovedtheplacementprocessforhiringofpersonnelduringtransition--ArticleXVI,Section10oftheOrganicLawdirectedtheBTAto“instituteanindependent,strictlymerit-

based,andcredibleplacementandhiringprocessforalloffices,agencies,andinstitutionsin

theBangsamoroGovernment,andshallconsidergenderandethnicbalance.”

StipulatedintheBTAapprovedTransitionPlanwereguidelinesontherecruitment,selection

andplacementofhumanresourceintheBangsamoroGovernment.Theseguidelineswere

issued to facilitate theprocessofhumanresource recruitment, selection,andplacements

andfillingupofpositions intheApprovedStaffingPattern(ASP)asaresultofthegradual

phasingoutofofficesintheARMMandthesubsequentcreationofnewofficesintheBTA.15

Moreover, the guidelines indicated somemajor provisions such as the publication of the

vacantpositionsauthorizedtobefilledandtheircorrespondingqualificationstandardsand

plantilla itemnumbersintheCivilServiceCommission(CSC)BulletinofVacantPositionsin

theGovernmentintheCSCWebsiteorthroughothermodesofpublicationsuchastheBTA

Website,newspapersandotherjobsearchwebsites.

• Launched the Bangsamoro Job Portal -- the Bangsamoro Government launched aBangsamoro Job Portal to the public on 30 December 2019. According to ChiefMinister

Ebrahim,theplatformwascreatedaspartoftheBangsamoroGovernment’scallformoral

governanceanditspolicytostrictlyimplementthemerit-basedhiringprocessandcredible

jobplacement.16 Jobseekerscannowsubmit their resumeonlineso thateven if theyare

fromthefarthestpartoftheBangsamoro,theyneednothavetotravelandspendtheirhard-

earnedmoneytogettheirapplicationreceivedbytheBangsamorogovernment.Theportal

screensapplicantsbasedontheirmeritandcredibility.AsofJuly2020,itwasreportedthe

portal has received around 295,813 applications for the 4,094 positions posted by the

15LiftedfromEnhancedTransitionPlan2019-2022fortheBangsamoroTransitionAuthority(BTA)16https://bangsamoro.gov.ph/news/latest-news/barmm-launches-bangsamoro-job-portal/


differentministries and offices of the BARMM, this redounds to a ratio of 72 applicants

competingfor1positiononly.

4. EnactedtheBangsamoroAppropriationsAct(BAA)TheenactmentoftheBAAisconsideredasawatershedachievementoftheBTA.Thisisthefirst

timethattheMoroleadershaveallcometogetherasaParliamentinordertoplanandallocate

theBlockGrantinaccordancewithwhattheyseeastheactualneedsoftheBangsamoropeople.

Itisalsothefirstbudgetingprocess,undertheBlockGrantmechanism,wheretheBARMMcan

trulyclaimthatthereisfiscalautonomyastheynolongerhadtobegandjustifyfundsbefore

Congress.Minister EduardGuerradescribed theBAAas a postwarbudgetwhichwill have to

satisfythehighexpectationsofthepeople.TheBAAmaynotbeenoughbutitissomethingthat

theBARMMGovernmentcansubstantiallystart.17

In the firstBangsamoroAppropriationsAct (BAA),abigchunkof thebudgetwasgiven to the

MinistryofBasic,HigherandTechnicalEducation(MBHTE)amountingtoP19,056,935,766.67.In

comparison with the 2019 GAA, the BAA 2020 has been able to increase the budget of the

Ministries, particularly the Ministry of Indigenous Peoples Affairs which increased from

P21,365,000.00toP99,635,217.70.Herearesomebasicexamples(Table3):Table3.Comparisonbetween2019GAAand2020BAAonselecteddepartmentsandministries

2019GeneralAppropriationsAct 2020BangsamoroAppropriationsAct

DepartmentBudget

AppropriationMinistry

BudgetAppropriation

DepartmentofInteriorandLocalGov’t.

169,525,000.00MinistryofInteriorandLocalGov’t.

1,354,637,972.84

DepartmentofScienceandTech. 27,544,000.00 MinistryofScienceandTech. 164,560,997.76DepartmentofHealth 1,504,135,000.00 MinistryofHealth 3,069,533,195.95DepartmentofTransportationandCommunication

67,487,000.00MinistryofTransportationandCommunication

214,911,562.40

OfficeoftheSouthernCulturalCommunities

21,365,000.00MinistryofIndigenousPeoplesAffairs

99,635,217.70

Moreover,the2020BAAhasreservedbudgetfor

purposessuchastofundtheofficesthatwillbe

createdbytheBTAandappropriateauthority,to

support BARMM’s local moral governance

initiatives,salaryadjustments,andthelike.(Table4)

17InterviewwithMPMemberandFormerMinisterofFinanceandPublicWorksEduardGuerra,6August2020

Table4.ReservedBudgetinthe2020BAAParticulars AmountMiscellaneousandPersonnelBenefitFund

9,280,558,584.58

ContingentFund 13,201,891,779.81

Particulars

Miscellaneous

andPersonnelBenefitFund

Contingent

Fund

Particulars

Miscellaneous

andPersonnelBenefitFund

Contingent

Fund


SourcesofFunds

ArticleXIIoftheOrganicLawprovidestheBangsamoroGovernmentthepowertocreateitsown

sources of revenues for the purpose of attaining economic self-sufficiency and genuine

development.Thelawspecificallystipulatesthattherevenuesshallbespentinaprogrammatic,

transparent,performance-based,andphasedmanner.18Apartfromitssourcesofrevenues,the

Organic Law also provides the following fiscal support to be provided by the National

Government:

• Annual Block Fund – the National Government shall provide an annual block grant

equivalentto5%ofthenational internal revenuecollectionsof theBureauof Internal

Revenue and Bureau of Customs. The annual block grant shall be automatically

appropriatedintheGeneralAppropriationsActoftheCongressofthePhilippinestothe

BangsamoroGovernment.Itshallbereleasedwithoutneedofanyfurtheraction,directly

andcomprehensivelytoBangsamoroGovernment,andshallnotbesubjecttoanylienor

holdbackthatmaybeimposedbytheNationalGovernmentforwhateverpurpose.19The

BARMMBlockGrantforFY2020isdistributedthisway:20%goestoCapitalOutlay;33%

to MOOE; and 47% to Personnel Services. Specifically stipulated in the Organic Law

assigningthehighestbudgetaryprioritytoeducation,health,andsocialservices.20(SeeTable5fortheBlockGrantBudgetbyMinistry)

• SpecialDevelopmentFund–anamountequivalenttoP50billionorP5billionperyearfor

aperiodof10yearswillbeprovidedby theNationalGovernment to theBangsamoro

Government.21

• OtherBudgetarySupport fromtheNationalGovernment–undertheFY2020National

ExpenditureProgram(NEP),theBangsamoroGovernmentwillreceiveP8.804billionfrom

theNationalGovernment.22

• InternalRevenueAllotmentAllocation (IRA) – the LocalGovernmentUnits (LGUs) that

comprised the BARMMwill receive their respective IRA. ForNEP 2020, an amount of

P31.332billionwillbedistributedtothefollowingLGUs:Basilan–P3.366billion;Lanao

delSur–P11.038billion;Maguindanao–P8.127billion;Sulu–P5.260billion;andTawi-

Tawi–P3.540billion.23

On30November2019theBTA-BARMMbudgetforFY2020wasapproved.BTA-CabinetBillNo.

31entitled“AnActappropriatingfundsfortheoperationoftheBangsamoroAutonomousRegion

inMuslimMindanao(BARMM)fromJanuary1toDecember31,2020,andotherpurposes"was

approvedbytheBTAParliamentwith48“yes”votes,one“no”vote,andfiveabstentions.Hailed

18ArticleXIIFiscalAutonomyoftheBOL.19Ibid.,Sections15-1820https://accessbangsamoro.ph/wp-content/uploads/2020/02/AccessBangsamoro_2020-BARMM-Budget-Brief.pdf.ThispaperexaminedtheBARMMBudgetforFY2020.Formoredetails,pleaserefertohttps://accessbangsamoro.ph/wp-content/uploads/2020/02/AccessBangsamoro_2020-BARMM-Budget-Brief.pdf,page4.21Ibid.22Ibid.23loc.cit.Formoredetails,pleaserefertohttps://accessbangsamoro.ph/wp-content/uploads/2020/02/AccessBangsamoro_2020-BARMM-Budget-Brief.pdf,page4.


asaninclusivebudget(i.e.,inclusiveforalltheBangsamoropeople)theBAAFY2020containsthe

priorityplans,projects,andprogramsoftheBangsamoroGovernment.24

ThetotalbudgetforFiscalYear2020isP65.3billion.Beforetheapprovalofthebudget,eachof

the Bangsamoro ministry and offices submitted to the Ministry of Finance, Budget and

Managementtheirrespectivebudgetproposals.Afterreviewanddeliberation,theinterimChief

Minister with the cabinet, approved the proposals and, after which, the 2020 Bangsamoro

ExpenditureProgram(BEP)wascraftedandsubmittedtotheBTAParliamentforapproval.The

BARMM’s2020budget is twice the lastbudgetof thedefunctAutonomousRegion inMuslim

MindanaoplacedatsomeP33billionin2019.

FromP65.9billionBARMMBudget,P43billionor66%isearmarkedforprojectsandprogramsof

the18ministriesandofficesoftheBangsamoroGovernment.AboutP20.2billionor47%isfor

PersonnelServices.MOOEgetsP14.4billionor33%ofthetotalbudget.CapitalOutlay’sshareis

P8.7billionor20%ofthetotalbudget.25

Table5.BlockGrantBudgetbyMinistry26

Ministry Allocation

1 MinistryofBasic,HigherandTechnicalEducation 19,056,935,766.67

2 OfficeoftheChiefMinister 7,922,849,141.76

3 MinistryofPublicWorks 4,089,426,542.06

4 MinistryofHealth 3,069,533,195.95

5 BangsamoroTransitionAuthority 2,591,131,798.60

6 MinistryofSocialServices 2,033,935,622.42

7 MinistryofInteriorandLocalGovernment 1,354,637,972.84

8 MinistryofAgriculture,FisheriesandAgrarianReform 986,810,707.87

9 MinistryofEnvironment,NaturalResources,andEnergy 460,483,910.78

10 MinistryofFinance 454,049,670.50

11 MinistryofTradeandInvestment 279,828,934.72

12 MinistryofTransportation 214,911,562.40

13 MinistryofLaborandEmployment 193,213,547.26

14 MinistryofScienceandTechnology 164,560,997.76

15 MinistryofIndigenousPeople’sAffairs 99,635,217.70

16 MinistryofHumanSettlement 94,935,427.50

17 BangsamoroHumanRightsCommission 92,262,398.36

18 MinistryofPublicOrderandSafety 86,808,855.58

19 OfficeoftheWali 27,809,726.07

Total 43,272,760,996.80

5. TheInternalRevenueAllotment(IRA)werereleasedTheIRAof11municipalitiesthatpreviouslydidnotreceivefinallygotperNoticeofCashAllocation

No.NCA-LGRCB-20-00018intheamountofP273,863,730.00tocovertheirfirstquarterbudget.

24Source:https://www.pna.gov.ph/articles/108772725op.cit.,AccessBangsamoro_2020-BARMM-Budget-Brief.pdf26Ibid.


Thesemunicipalitiesare:DatuSalibo,DatuHoffer,Mangudadatu,Pandag,NorthernKabuntalan,

Datu Blah Sinsuat and Datu Anggal Midtimbang in Maguindanao; and Akbar, Al-Barka, Hadji

Muhtamad and Mohammad Ajul in Basilan. These municipalities expressed high level of

satisfactionwiththeperformanceoftheBARMM.MayorUmbraB.DilangalenofNorthernKabuntalanMunicipality,Maguindanaohadthistosay:27

Without the BOL and the BARMM, I do not know how our people will survive in thispandemic.NowthatwehavetheIRA,weareabletoimmediatelyprovidemedicalandreliefassistance, construct isolation facilities and distribute PPEs without having to beg forsubsidiesfromtheregionalgovernmentorsolicitfromnationalagencies.Before,wewereatthemercyoftheARMM.Ifyouareclosetotheleadershipyougetsubsidies.Ifyouarenotundertheirfavor,youhardlygetanything.

Another mayor shared similar opinion. Mayor Ibrahim Ballaho of theMuhammad Ajul

MunicipalityinBasilansaid:28

ThereleaseoftheIRAsignificantlyimprovedthemaintenanceofpeaceandorderandthe fastdeliveryofservices to thepeople.Weareable toprovidereliefandinstall an isolation center.Weare also able toprovide concrete support such asemploymentandlivelihoodtotheASGrebelreturneeswhoalreadysurrenderedtogovernment.Ourmunicipality isalsoprovidingsubsidiestotheUstadzeswhoarerunningtheMadrasah.Ourinterventionsherewillhelpwintheheartandmindsofyoungpeoplesothattheywillnotbeluredtoextremismandterrorism.

ThereleaseoftheIRAwasindeedawelcomedevelopmentbecausetheLGUscannowidentify

themselvesasco-equalwiththeotherLGUs. InthewordsofNorthernKabuntalanViceMayor

MaryJaneC.Bayan:29

Now that we have the IRA we can already claim that we are now a full-fledged localgovernmentunit.Wecantrulysayweareintoactualgovernance.Ifthereisaflashflood,weare able respond immediately. We have already funds for the street lights and roadmaintenance.Thebiggestchallengenowishowtotransformrevolutionarymindsettomoralgovernancemindset.Thisisaradicalshiftthatcannotbedoneovernight.Timeisveryshortforthetransition.IhopethiswillbeextendedsothattheBTAandMILFcanimplementthechangesthattheycommittedtodo.

6. TransferredfullpowersandpropertiesoftheAutonomousRegionalGovernmentinMuslimMindanaototheBangsamoroGovernment

On26February2019,theARMMthroughitsthenRegionalGovernorMujivHatamanwasofficially

turnedover to theBangsamoroTransitionAuthority (BTA) through its InterimChiefMinister

27InterviewwithMayorUmbraB.DilangalenoftheMunicipalityofNorthernKabuntalanMunicipality,MaguindanaoProvince,6August2020.28InterviewwithMayorIbrahimBallahooftheMuhammadAjulMunicipality,30September202029InterviewViceMayorMaryJaneC.BayanoftheMunicipalityofNorthernKabuntalanMunicipality,provinceofMaguindanao.


AhodB. Ebrahim.Alongwith the turnoverof theARMMwas theARMMTransitionReport

composedof 34documentsdivided intonine (9) books. Thebooks summarizedpertinent

information from the thenARMMset-up, includingassets, liabilities, personnel andplans,

programs, and activities, lessons learned from

the ARMM experience; and options for thetransition to theBTA.The turnoverwasheldat

the Shariff Kabunsuan Cultural Complex in

CotabatoCity.Todate, therefore, the functions

oftheARMMhavebeentransferredtotheBTA,

including planning; programming; budgeting;

funds flow, management and utilization;

implementation arrangements of programs and

projects and overseas development assistance

(ODA) accessing; auditing; elections; and civil

service.

TheBOLmandatesthefulltransferofpowersandpropertiesoftheARMMtotheBangsamoro

Governmentexceptthoseproperties,land,andstructureslocatedoutsideoftheARMM.Theland

and permanent buildings or structures located outside the ARMM, owned, controlled,

administered, or in the possession of the Autonomous Regional Government in Muslim

Mindanao,shallbepurchasedbytheNationalGovernmentatapricetobedeterminedthrough

theintergovernmentalrelationsmechanismwithinone(1)yearfromratificationoftheBOL.Any

disputeonthepricemaybeappealedtotheOfficeofthePresidentwhichshalldecideonthe

pricewithfinalitywithinthree(3)monthsfromthereceiptoftheappeal.Theproceedsshallbe

remittedtotheBangsamoroGovernment.30

7. PrioritylegislationswerepartiallyenactedSection4(a),ArticleXVIoftheOrganicLawprovidesforthepriority legislationsfortheBTAto

enact.Asof September2020, the Cabinethas filed threedraft codes to theBTAParliament,

namely:AdministrativeCode,LocalgovernmentCode,andCivilServiceCode.TheEducationCode

is already approved by the Cabinet and it is ready for filing as soon as the Parliament will

convene.31TheElectoralCode isexpectedtobefiledbefore2020ends.Printedcopiesof the

RevenueCodeandElectoralCodearenotyetavailabletodateforpublicdissemination.TheMPs

interviewedwereoneinsayingthattheyhaveyettoreceivecopyoftheseremainingcodes.

• BangsamoroAdministrativeCode–On3August2020,theCommitteeonRulescreatedaPanel

fortheBangsamoroAdministrativeCodetofacilitateandexpeditepublicconsultationsCabinet

BillNo. 60 entitled “AnAct Providing for theBangsamoroAdministrativeCode and forOther

RelatedPurposes”whichwasfiledtotheBTAParliamenton22July2020.Theothertaskofthe

Panel istosubmitareporttotheCommitteeonRulesontheresultsoftheabove-mentioned

publicconsultations.32

30ArticleXVISection4(d)oftheBOL 31VirtualinterviewwithMPRasulMitbug,11August2020.32Ibid.MPMitmug.

Photocredit:https://bangsamoro.gov.ph/news/latest-

news/hataman-leads-turnover-ceremony-of-armm-to-

the-bta/


Todate, thePanelhas conducted six (6) consultations:August14withprovincial LGUs in the

morningandwithCabinetmembers intheafternoon;17Augustwithexperts;19Augustwith

sub-unitsofministries;22Augustwithsub-unitsofMBHTEandMILG;and26Augustwithleagues

ofLGUsandotherLCEs.Aseparatepublicconsultationwassimilarlyheldwithvarioussectors

attended by religious, traditional leaders, fisherfolks, farmers, women and children, settler

communities,academe,professionals,business,labor,youth,andNMIPS.

Hailedasa landmark legislationthattookalmostayeartocomplete,theAdministrativeCode

“seeks to serve as a unified document that will incorporatemajor structural, functional and

procedural principles and rules of governance within the Bangsamoro Government.”33 The

Administrative Code is the foundation of all the codes; without it there is no bureaucratic

organization.34 The Code contains seven (7) Books comprising various chapters, titles, and

sections.TheIntroductoryProvisionsincludesSectionsonTitle,Purpose,DeclarationofPrinciples

andPolicies,andDefinitionofTerms.TheAdministrativeCodehas205pages.

BookI BangsamoroAutonomyandAdministrationBookII IntergovernmentalRelationsBookIII TheBangsamoroAutonomousGovernmentBookIV TheOfficeoftheChiefMinisterBookV GeneralFunctionsoftheCabinetBookVI MinistriesandOfficesBookVII GeneralProvisions

• BangsamoroLocalGovernmentCode --CabinetBillNo.58entitledAnActProviding for the

BangsamoroLocalGovernanceCodewasfiledtotheBTAParliamenton22July2020.TheCode

declared that “pursuant to the principles of moral governance, shall provide for a more

responsive and accountable local government structure instituted through a system of

decentralization whereby constituent local government units shall be given more powers,

authority,responsibilities,andresourcesinagradualandsystematicapproach.Theprocessof

decentralizationshallproceedfromtheBangsamororegionalgovernmenttoitsconstituentlocal

governmentunit.35TheCodecontains333pages,withthefollowingparts:

BookI GeneralProvisionsBookII LocalTaxationandFiscalMattersBookIII BangsamoroConstituentsUnitsBookIV MiscellaneousandFinalProvisions

33BTAParliamentBillNo.60.34VirtualinterviewwithMPAttyJoseLorena,17August2020.

35BangsamoroLocalGovernanceCode,BookI,TitleIBasicPrinciples,ChapterItheCode,PolicyandApplication,Section2.DeclarationofPolicy


Oneof thesalient featuresof theLocalGovernanceCode is theanti-dynastyprovision,which

disqualifiesfromrunningforanyelectivelocalposition[TitleIIChapterVISection40],towit:

Thosewhoarerelatedwithinthesecondcivildegreeofconsanguinityoraffinitytoanyincumbentlocalofficialrunningforanelectivepositionaredisqualifiedtobecandidatesfor(i)anyprovincialelectivepositioninthesameprovince;(ii)anycityelectivepositioninthesamecity;(iii)anymunicipalpositioninthesamemunicipality;and(iv)anybarangayelectivepositioninthesamebarangay.

AttorneyNaguibSinarimbooftheMinistryofInteriorandLocalGovernmentsaidthattheanti-

dynastyprovisionhasaprobabilitytobeenactedintoalaw,giventhefactthattheGovernment

oftheDaywieldsthemajorityintheParliament.36ItisonlyintheBARMMthattheconstitutional

mandateunderSection26Article2categoricallyprohibitingpoliticaldynastywillfinallyfindan

enablinglegislationthroughtheLocalGovernanceCode.Thiswillbeamajorbreakthroughinthe

decades-long campaign to limit or ban political dynasties to prevent the concentration,

consolidationand/orperpetuationofpoliticalpowersinthehandsofonefamily.

• BangsamoroCivilServiceCode–CabinetBillNo.59wasalsofiledon22July2020entitledAn

ActProvidingfortheBangsamoroCivilServiceCodeoftheBangsamoroAutonomousRegionin

MuslinMindanao.TheintentoftheCodeistobeabletomanagethebureaucracywithutmost

professionalism and higher standards. The purpose of the Code is to provide an effective

instrumentforgoodgovernanceandresponsivepoliciesonhumanresourceadministrationof

the Bangsamoro Government by maintaining and/or improving existing national civil service

rules,regulationsandstandardswhileaddressingthe legitimateneedsandpeculiaritiesofthe

Bangsamoropeopleintheregion.37TheCodeiscontainedin109pagesandhasthefollowing

parts:

BookI PreliminaryTitleBookII QualificationsofNon-ElectivePositionsBookIII ConductofCivilServantsBookIV ProtectionofCivilServiceEligiblesBookV ProcedureonDisciplinaryActions

TransitoryProvisions

Intermsoftheorderofpriority,theCivilServiceCodetakesthesecondprimacy.Thisisbecause,

underthetransitionperiod,BARMMisoperatingwithonlyskeletalworkforce.Apartfromthis,

only50%areallowedtoreportforwork.Hence,thereisanurgentneedtofillthepositionsinthe

bureaucracy.Hiringhowevermustbecoveredbyameritsystem,thatis,itmustfollowtheCivil

Servicestandards.38

36InterviewwithAttorneyNaguibSinarimbo,CotabatoCity,27August2020.37Liftedfrom1stDraftBangsamoroCivilServiceCode2020.38loc.cit.,AttorneyJoseLorena.


• BangsamoroEducationCode–theBARMM’sBangsamoroEducationsystemcoversallformal

andnon-formalsystemsofeducationinpublicandprivatelearninginstitutionsinalllevelsofthe

educationwhich shall be collectively referred to as the “BangsamoroEducation System. “The

draftingoftheCodewasnotaneasytaskbecausewehadtoincorporatetheBasicEducation,

HigherEducation,TechnicalEducationaltogether.TheCodealsoprovidesfortheestablishment

oftheBasicEducationundertheMadrasahSystemwhichisfirsttimeinhistory.Asofnow,what

wehaveareprivatelyrunMadrasahswhicharemostlynotaccredited. WiththeBangsamoro

EducationCode,theregionalgovernmentwillestablishpublicMadrasahsthatwillbehandled,

managedandoperatedbytheMinistry”39.SalientfeaturesoftheCodeincludePeaceEducation,

Indigenous Peoples Education Curriculum and the Islamic Subjects and Arabic Language

Curriculum.ItalsoprovidesfortheestablishmentoftheTribalUniversitySystem.

“The Tribal University System is a very welcome development for the non-Moroindigenouspeoples. Thiswillbea lasting legacyoftheBARMMnot just forthenon-MoroindigenouspeopleswithintheregionbutalsoforotherindigenouspeoplesalloverthecountrywhowillhavetheopportunitytostudyintheTribalUniversitySystem.Thiswillensurethepreservationanddevelopmentofourcultures,beliefanddistinctidentityasindigenouspeopleshandinhandwithourBangsamorobrethren.”40

Asof1August2020,acopyofthedraftcodeisalreadyavailable.Itiscontainedin51pageswith

thefollowingparts:

BookI GeneralProvisionsBookII TheEducationCommunityBookIII TheBangsamoroEducationSystemBookIV BasicEducationundertheSchoolSystemBookV BasicEducationundertheMadrasahSystem

BookVI AlternativeLearningSystemforBasicEducation

BookVII TechnicalEducationandSkillsDevelopment

BookVIII HigherEducation

BookIX HigherEducation

BookX IndigenousPeoplesEducation

BookXI PeaceEducation

BookXII EducationSystemAdministration

BookXIII MiscellaneousProvisions

• Bangsamoro Women Commission and Bangsamoro Youth Commission -- Under the Bangsamoro

AdministrativeCode(TitleXVI),achapterwasdevotedfortheBangsamoroWomenCommission.

Threesectionsareadded,i.e.mandate;organizationalstructure;and,itspowersandfunctions.

TheCommissionismandatedto“promote,protect,andupholdwomen’srightsashumanrights,

workfortheeliminationofallformsofdiscriminationagainstwomen,ensurethatlegalmeasures

39 Interview Dr. Rahib C. Kudto, Director General, MBHTE, September 25, 2020. 40 Interview Archie Buaya, Chairman, Confederated Descendants of Rajah Mamalu, September 9, 2020.


are taken to promote gender justice, women’s rights and welfare, and promote gender and

developmentincludingthemeaningfulparticipationofwomeninalllevelsofgovernance,policy

anddecision-making”.41TheBangsamoroWomenCommission isattachedto theOfficeof the

ChiefMinister.42

AnotherchapteristheBangsamoroYouthCommission,likewise,anattachedagencyoftheOffice

of the Chief Minister. The Bangsamoro Youth Commission is the primary policy-making and

coordinatingbodyoftheBangsamoroGovernmentinallmattersaffectingtheyouth.Assuch,it

hastoensurethatallministries,agencies,offices,andotherinstrumentalitiesoftheBangsamoro

Governmentshallimplementthemandatedprograms,projects,andactivitiesaffectingtheyouth

oftheBARMM.43

9. Enactment of law to recognize, protect, promote and preserve the rights of indigenous

peoples

Oneof thepriority legislationswhichwaspromptly filedbefore theParliamenton23 January

2020wasBillNo.40entitled“AnActtoRecognize,Respect,Protect,PromoteandSupportthe

RightsoftheIndigenousPeoples,CreatingtheMinistryofIndigenousPeoplesAffairs,Establishing

theImplementingMechanisms,AppropriatingFundsThereforeandforOtherPurposes”.ThisBill

wasjointlyauthoredbyMelanioU.UlamaandRomeoC.Saligawhobothrepresentthenon-Moro

IndigenousPeoplesintheBTA.Onrecord,BillNo.40waspresentedonFirstReadingduringthe

31stSessionoftheParliamenton19February2020butuptonow,theBTAhasnotyettakenany

actionon theproposed legislativemeasure.Accordingly, BillNo. 40wasnot authoredby the

GovernmentoftheDaynorwasitcertifiedasanurgentBill.Thismaybeaplausiblefactorwhyit

hasnotgainedanytractionintheParliament.

MP Romeo Saliga said that it is only proper that the Bill was principally authored by the IP

representativesintheBTAtoensurethattherewillbeasenseofownershipoverthislegislative

measure among the indigenous peoples they represent. Whether it is sponsored by the

GovernmentoftheDaywillnotreallymatterforaslongastheleadershipwillgivethenecessary

technical,logisticalandpoliticalsupportforthepassageoftheIPlaw.Thisisnotonlythepriority

taskofthetwoIPrepresentativesintheBTAbuttotheentireBTAitself.44

BTAMemberAtty.Suharto“Teng”AmbolodtocommittedtocloselyworkedwithIPleadersand

civilsocietyorganizationsinthedraftingoftheIPLaw.“Thereisalotofopportunitiesthatwe

can introduceto improvethegoverning lawfor the IndigenousPeoples in theBARMM. Iwill

personallycommittoworkonthis.IfthereareproposalsfromtheIPadvocates,wewillhighly

welcomeandengagewiththem.”45

41Ibid.42BangsamoroAdministrativeCode,page17943Ibid.44InterviewwithBTAMemberRomeoSaliga,CotabatoCity,7August202045Interview,CotabatoCity,20August2020.


Feedback coming from the focused group discussions revealed that there was much to be

improvedonBillNo.40.Thedraftingprocessfellshortofthedegreeandextentofcommunity

consultationsrequiredtobeabletodevelopconsensusonthecontentandprovisionsofthedraft

law.Thereisaneedtoconductseriesofmassive,participatory,andinclusiveconsultationson

eachandeverynon-Moro indigenous tribe like theTedurays,DulanganManobo,Lambangian,

ArumanenManobo,Blaan,Higaononandother indigenouspeopleswithintheBARMM.This is

crucialtoarriveatasconsensuswhoareconsideredastheindigenouspeoplesintheBARMMin

relationtothespecificreferenceofthenon-MoroIndigenousPeoplesintheBOL.

WhiletheIPCodehasyettobeenacted,aperusaloftheBangsamoroAdministrativeCodehas

given four pages that dealt on thematter of the IPswithin the BARMM. Title VII Indigenous

Peoples Affairs consists of three Chapters and 12 Sections. Chapter One deals on General

ProvisionsstipulatingDeclarationofPolicies,Mandate,PowersandFunctionsandOrganizational

Structure. Chapter Two describes the Office of the Minister, Powers and Functions of the

Minister,PowersandFunctionsoftheDeputyMinister,andtheBangsamoroDirector-General.

Chapter Three has sections on the Structure of the Ministry, the Office for Ancestral

Domains/NativeTitle, theSpecial PublicAssistanceand Legal AidOffice, and theCommunity

ServiceCenter.TheprovisionsprovidedintheBangsamoroAdministrativeCodeshallbethebases

forwhatever forthcoming legislationstobepromulgatedthatconcernthe IndigenousPeoples

withinthejurisdictionoftheBARMM.

10. At the Cabinet level, the Parliamentary districts for the first regular election for the

membersoftheParliamenthavebeendetermined

Determination of the parliamentary districts was already finished at the level of the Cabinet

Committee. The proposed parliamentary districts are incorporated in the Electoral Code

inasmuchasthesubjectmatterisanelectionsconcern.

TheBTAiscurrentlyrushingthedraftingoftheElectoralCodebecausethe2022electionsarefast

approaching.Registrationofpoliticalpartiesanddividingthepoliticaldistrictsareurgentasthese

couldtaketheentireyearof2021tocomplywith.IftheElectionCodeisnotenactedintolaw,

the national government through the COMELECmight intervenewhichmay essentially dilute

BARMM’sexerciseofautonomy.46

The Parliamentary Districts under Article IV-Bangsamoro Parliamentary District provides that:

“For the purpose of redistricting, parliamentary districts shall be apportioned based on the

populationandgeographicalarea:Provided,thateachdistrictshallcomprise,asfaraspracticable,

contiguous, compact, and adjacent territorial jurisdiction:Provided, further, that each district

shallhaveapopulationofatleastonehundredthousand(100,000).Basedonthislegalformula,

therewillbe32parliamentarydistrictsthatwillcomefromMaguindanao,LanaodelSur,Sulu,

Tawi-TawiandBasilanwithMaguindanaohavingthehighestnumberwith10districts,followed

byLanaodelSurwithnine(9)districts,asshowninTable6.

46loc.cit.,Lorena


Majority Floor Leader Lanang Ali, Jr.47

explained the proposed redistricting of

parliamentarydistrictisyettobediscussed

intheParliament.Asofnow,itisstillatthe

leveloftheCabinetCommittee.Assoonas

it is filed, theElectoralCodetogetherwith

theproposeddistrictingwillbereferredto

theCommitteeonRulesfortheconductof

public hearings, which is in an essential

processoflegislation.

Theparliamentarydistrictingisdeemedimportanttobelegislatedassoonaspossiblebecauseof

theforthcomingelections.Dependingonhowfastandthoroughthepublicconsultationswould

be,theforecasthasitthatthedraftingoftheElectoralCodemaytakeoneyearandsixmonths.48

Moreover, it has repercussions to the selection of teachers and appointments in the

parliamentarydistricts,amongothers.Inshort,ithaspotentialpoliticaleffectsthatmakesitthe

moreurgenttohaveitlegislatedthesoonest.49

Forthelongesttime,theAutonomousRegionhashadthereputationofthe“cheatingcapitalfor

electionsinthecountry”.ThebattlecryoftheBangsamoropeopleistoovercomethissarcastic

tagonthem.HopesarehighthattheElectoralCodewillintroduceelectoralreformsthatgovern

thefutureelectionsintheregionthatarepeacefulandthepeopleareabletofreelyexpresstheir

choicesthroughtheballots.

ParliamentarydistrictswillbeembeddedintheElectoralCode.Frommanysectorsinandoutside

theAutonomousRegion,culturalsensitivityandknowledgeofthe localsituationarethetwin-

adviceontheapproachofthedistricting.Sincedistrictingconcernsaboutelections,andelections

areaboutpeople’svotes,wideconsultationsacrossallsectorsmustbedone.Districtingcanbe

highlypoliticized,soitiscrucialthatthelocals(localgovernments,localandreligiousleaders,civil

societygroups,etc.)areengagedactivelythroughouttheprocess.11. Turnedover 63barangays/newareas

oftheBangsamoro

Sixty-three barangays in North Cotabato

voted to join the Bangsamoro during the

plebisciteof theBangsamoroOrganic Law

on6February2019.On20November2019,

a ceremonial turnover was held where

NorthCotabatoActingGovernorEmmylou

Mendoza led the turnover of the 63

47loc.cit.,Ali,Jr48loc.cit.,Mawallil49loc.cit.,Mitmug

Photosource:https://bangsamoro.gov.ph/news/latest-news/63-barangays-of-northcot-now-officially-part-of-barmm/

Table6.NumberofDistrictsbyProvinceandPopulation

Province PopulationNumberofDistricts

Basilan 346,579 3Sulu 824,731 7Tawi-Tawi 360,328 3LanaodelSur 1,045,429 9Maguindanao 1,114,119 10

Total 32


barangaystoChiefMinisterAhodBalawag

Ebrahim,asenumeratedinthetablebelow:

Table7.ListofSixty-threebarangaysfromNorthCotabatoturned-overtoBARMM

Aleosan 1Dunguan2Tapodoc

Carmen 3Manarapan4Nasapian5Kibayao6Ktulaan7Langogan8Pebpoloan9Tupig

Kabacan 10Nanga-an11Simbuhay12Sanggadong13Buluan14Pedtad15Simone16Tamped

Midsayap17Damatulan18Kadigasan19Kadingilan20Kapinpilan21Kudarangan22CentralLabas23Malingao24Mudseng25Nabalawag26Olandang27Sambulawan28Tugal29Tumbras

Pigcawayan30LowerBaguer31Balacayon32Buricain33DatuBinasing34Kadingilan35Matilac36Patot37LowerPangangkalan38DatuMantil39LibunganTorreta40UpperPangangkalan41Simsiman

Pikit

42Bagoinged43S.Balong,44SBalongis45Batulaawan46Buliok47Gokotan48Kabasalan49Lagunde50Macabual51Macasendeg52Barungis53Bualan54Bulol55FortPikit56Gli-gli57Manaulanan58Nabundas59Nalapaan60Nunguan61Pamalian62Panicupan63RajahMuda

PendingtheenactmentoftheLocalGovernanceCode,theBARMMhascreatedtheDevelopment

CoordinatingOfficewhichistaskedtoadministerthe63barangays.Thisofficewillprimarilybe

responsible for the planning and implementation of programs, projects, and activities of the

BARMMministriesandoffices intheNorthCotabatobarangays.However,these63Barangays

stilldonothaveadequatefundsyetandaredependentontheprogramsandprojectsthatwill

bechanneledtothembythedifferentMinistries.Thishastobeaddressedassoonaspossible

becausethebudgetthatthesebarangaysusedtoreceivefromtheProvinceofNorthCotabato

willdiscontinueanytime.50

12.ConstitutedtheIntergovernmentalRelationsBody(IGRB)

Mandate -- The Bangsamoro Organic law also provides an intergovernmental relations

mechanism,referredtoasIntergovernmentalRelationsBoard(IGRB)tasked“tocoordinateand

resolve issues on intergovernmental relations through regular consultation and continuing

negotiationinanon-adversarialmanner”51.Thelawfurtherstatesthatitshallexhaustallmeans

toresolveissuesbroughttothebody,andonlyunresolvedonesshallbeelevatedtothePresident,

throughtheChiefMinister.52

FunctionsofIGRB--ThefirstmeetingoftheIGRBtookplaceninemonthsaftertheinauguration

oftheBangsamoroAutonomousregion,heldatMarcoPoloHotelinDavaoCity,on16December

2019.ThisfirstmeetingresultedinthedeterminationoftheTermsofReferenceorfunctions(seeTable8fortheFunctionsofIGRB)andthecompositionofIGRB(seeTable8).

50InterviewwithMohammadKellieAntao,Administrator,DevelopmentCoordinatingOffice,31August202051ArticleVI-Section2IntergovernmentalRelationsMechanism,BOL52Ibid.


Table8.FunctionsofIGRB53• Coordinateandresolveissuesrelatingtoorarisingoutofthedelineation,devolution,

demarcation,andsharingpowers,jurisdiction,andcompetenciesoftheNationalGovernmentandtheBangsamoroGovernment,andtheirdepartments,ministries,agencies,andinstrumentalities;

• CoordinateandresolveissuesrelatingtoorarisingoutoftheimplementationofnationalprogramsandprojectsoftheNationalGovernmentintheBARMM;

• CoordinateandresolveterritorialissuesinvolvingtheNationalGovernment,theBangsamoroGovernment,anditsadjacentlocalgovernmentunits;

• CoordinateandresolveallotherissuesnotcoveredbytheotherintergovernmentalrelationsmechanismsonintergovernmentalrelationsbetweenthenationalGovernmentandtheBangsamoroGovernment;

• OperationalizetheotherintergovernmentalrelationsmechanismenumeratedundertheBOL

• Resolveissuesinvolvingintergovernmentalrelationsmechanisms;and,• PerformsuchotherfunctionsmandatedbytheBOLasmutuallyagreeduponbythe

NationalGovernmentandtheBangsamoroGovernmenttoensurethesmoothandeffectiveresolutionofissuesonintergovernmentalrelations.

Composition--TheIGRBNationalGovernmentisrepresentedbyDepartmentofFinanceSecretary

Carlos Dominguez and for the Bangsamoro Government by BARMM Education Minister

Mohagher Iqbal. TheOfficeof thePresidentialAdviseron thePeaceProcess serves the joint

secretariatoftheIGRB.

Table9.CompositionofIntergovernmentalRelationsBoard(IGRB)BARMM NationalGovernment1) Co-chair:EducationMinisterMohagherIqbal 1) Co-chair:FinanceSecretaryCarlosDominguezIII2) BangsamoroParliamentSpeakerAliPangalian

Balindong2) PresidentialAdviseronPeace,Reconciliation,and

UnityCarlitoGalvezJr3) ExecutiveSecretaryAbdulraofMacacua 3) SocioeconomicPlanningSecretaryErnestoPernia4) CabinetSecretaryMohammadAsninPendatun 4) InteriorSecretaryEduardoAño5) InteriorandLocalGovernmentMinisterNaguib

Sinarimbo5)DefenseSecretaryDelfinLorenzana

6) PublicWorksMinisterEduardGuerra 6)PublicWorksSecretaryMarkVillar7) SocialServicesMinisterRaissaJajurie 7)EnergySecretaryAlfonsoCusi8) Agriculture,Fisheries,andAgrarianReformMinister

MohammadYacobFisheries8)AgricultureSecretaryWilliamDar

9) TransportationandCommunicationsMinisterDicksonHermoso

9)TransportationSecretaryArthurTugade

10) RepresentativeoftheMinistryofEnvironment,NaturalResources,andEnergy(tobenamed)

10)CabinetSecretaryKarloNograles

Meetings–Regularmeetingsisonceinevery90days,tobealternatelyheldinMetroManilaand

CotabatoCity,orinanyotherlocationinthePhilippinesasagreedbytheIGRB.Specialmeetings

may be conducted for actions and issues that require immediate attention. As necessary,

resourcepersonsmaybeinvitedasmutuallyagreeduponbytheCo-Chairs.TheIGRBmayrefer

53PowerpointPresentationofJointSecretariatCo-HeadAtty.ShaElijahB.Dumama-AlbaduringthePeaceConversationsfortheBangsamoro:WebinarontheUpdatesontheGPH-MILFPeaceProcess,on23September2020,viazoomvideoteleconferenceandlivestreamingattheOPAPPFacebook.


amattertoanyintergovernmentalrelationsmechanismforresolution.Ifunresolved,suchshall

beelevatedtotheIGRBfordeliberation.TheIGRJointSecretariatmeetsregularlyonce.Meetings

heldsofar:16December2019;29May2020;and28August2020.Nextmeetingisscheduledon

9October2020.

13.StatusofotherInter-GovernmentalBodies

ThefollowingaretheotherIGRBodiesandtheirstatus:

• Philippine Congress-Bangsamoro Parliament Forum (PCBF) – created for the purpose ofcooperationandcooperationoflegislativeinitiatives.54PCBFisyettoconvene.55

• IntergovernmentalFiscalPolicyBoard(IFPB)–itsfunctionistoaddressrevenueimbalancesandfluctuationsinregionalfinancialneedsandrevenue-raisingcapacityoftheBangsamoro

Government.56TheBoardmetforthefirsttimeon29May2020viavideoteleconference.

The IFPB TORs were jointly signed by the National Government and Bangsamoro

Government.57

• IntergovernmentalInfrastructureDevelopmentBoard(IIDB)–itisprimarilyresponsibleforcoordinating and synchronizing national and Bangsamoro infrastructure development

plans.58Todate,theDPWHandtheMPW-BARMMarecurrentlyundertakingthenecessary

preparationsfortheconveningoftheIIDBinOctober202059.

• IntergovernmentalEnergyBoard(IEB)–itstaskistoresolveallmattersrelatedtoenergyasspecified in Section36,Article XIII and Section7,ArticleVI of theOrganic Lawandother

energyissuesreferredtoitbytheIntergovernmentalRelationsBody.60

• JoinBodyfortheZonesofJointCooperation(JBZIC)–itisresponsibleforformulatingpoliciesrelatingtotheZonesofJointCooperationintheSuluSeaandMoroGulf.61Itsfirstmeeting

washeldon26June2020viavideoteleconferencewhereinthedetailsoftheTORsofthe

JBZJCand itsJointSecretariatwerediscussed.Todate,theTORsoftheJBZJCand itsJoint

Secretariatarebeingfinalized.AsmandatedbytheBOL(Section18,ArticleXIII),anAdHoc

JointBodyiscurrentlyworkingonthedelineationoftheZonesofJointCooperation.62

• BangsamoroSustainableDevelopmentBoard(BSDB)–TheParliamentismandatedtocreatetheBoardcomposedofrepresentativesfromtheNationalGovernmentandtheBangsamoro

Government.Itsfunctionistoensuretheintegrationandharmonizationofeconomic,social,

andenvironmentalconsiderationsasvitaldimensionsofsustainabledevelopmentpolicyand

practiceintheBangsamoroAutonomousRegion.63Todate,theBSDBisyettobecreatedby

legislationoftheBangsamoroParliament.64

• Council of Leaders – it shall advise the Chief Ministers on matters of governance in theBangsamoroAutonomousRegion.ItiscomposedoftheChiefMinisterasheadoftheCouncil;

54Section3,LawArticleVIoftheBOL55loc.cit.,PowerpointPresentation56op.cit.,Section457opcit.powerpointpresentation58loc.cit.,Section659op.cit.,PowerpointPresentation60op.cit.,Section761Ibid.,Section562loc.cit.,PowerpointPresentation63op.cit.,Section864op.cit.,PowerpointPresentation


members of the Congress of the Philippines from the Bangsamoro Autonomous Region;

representatives of traditional leaders, non-Moro indigenous communities outside of the

Bangsamoro communities outside of the Bangsamoro Autonomous Region; and

representativesofothersectors.65Todate,theChiefMinisterisyettoconvenetheCouncil

ofLeaders.

InaninterviewwithCongressmanMunirArbison,hesaidthathelooksforwardtotheconvening

of the Council of Leaders and the Philippine Congress-Bangsamoro Parliament, so that the

politicalleaderswillbeabletosuggestandhelpinthetransition.Hisentirestatement:66

Thechangesarenotonlyconfinedattheregionalgovernmentlevel.Therealchallengeisattheprovincialandmunicipallevelswheregovernanceneedtodramaticallyimproved.Forinstance,inSulu,theBARMMshouldkeenlymonitortheperformanceofthelocalchiefexecutives and make sure that they will adopt to the changes. The leadership of theBARMMshould look at the justice systemand ruleof lawandmake sure that thiswillgreatly improveduringtheirterm.BARMMshouldhelpcleanupthejusticesystemandweedoutcorruptprosecutors, judgesandpolice.Iftheycannotdothis,wecanalreadyforeseewhatwillhappentotheBARMM.Itwilljustbearepeatofhistory.

Per report obtained, the Bangsamoro Government has already constituted the following IGR

bodies67o IntergovernmentalRelationsBody(IGRB)o IntergovernmentalFiscalPolicyBoard(IFPB)o IntergovernmentalInfrastructureDevelopmentBoard(IIDB)o IntergovernmentalEnergyBoard(IEB)o JointBodyforZonesofJointCooperation(JBZJC)

14.Othersignificantaccomplishments

• Shownself-relianceincombatingthepandemic,i.e.Corona19Virus

Barely a year from its establishment, BARMM has proven to be a self-reliant partner of the

NationalGovernmentinthefightagainstthevirus.ChiefimplementeroftheNationalActionPlan

againstCovid-19CarlitoGalvezJr.saidthenewly-formedautonomousregionquicklyresponded

to thecountry’sbattleagainst theCovid-19pandemic,noting that thecases in the regionare

comparatively low. Despite being geographically far from the National Government the

BangsamoroGovernmenthasbeenself-reliantindoinggreatwithitsbattleagainstCovid-19with

minimumtalliedcases.68AsofSeptember11,2020,thetotalconfirmedcasesare778with23

deaths,555recoveredand200activecases.Ofthe200activecases,46areadmittedwhile154

areinquarantinefacilities.69

65Section9,LawArticleVIoftheBOL966InterviewCongressmanMunirArbison,SuluDistrict2Representative,HouseofCongress.7September2020.67AccomplishmentReportfromtheCabinetSecretary,OfficeoftheChiefMinister,entitled“SignificantAccomplishmentsoftheBARMMMarch2019toJuly2020.”68MinutesoftheMeetingoftheInter-AgencyTaskForcewiththeBARMM.69BangsamoroInter-AgencyTaskForceonCovid19ReportasofSeptember11,2020.


• Financialsupporttofrontlineworkers

TosupportBARMM’sfrontlineworkers,theBangsamoroGovernmenthasallocatedtheamount

ofP1,918,782,295.0070,earmarkedforaugmentationofmedicalequipmentandsupplies,hazard

payforhealthworkers,medicalassistanceforCOVID19patientsthroughAyudangMedikalMula

saBangsamoroGovernment(AMBAG),andfinancialassistanceforinfectedfrontlineworkers.As

of30May2020,theBangsamoroGovernmenthasprovidedatleastP44.461million71worthof

medicalsuppliesthatweredistributedstrategicallytothedifferentprovincesoftheregion.

• Providedstrategicreliefoperations

Asof30June2020,theBangsamoroGovernmenthasbeenabletoprovide433,161foodpacks

and relief goods to its target beneficiaries. Food packs, which contained rice, canned goods,

coffee,instantnoodlesthatwouldlastforonetotwoweeks,weregiventotheaffectedfamilies

particularlythemostvulnerablesectors--seniorcitizens,personsunderinvestigation(PUIs)and

personsundermonitoring (PUMs)andthosewhose livelihoodwereextremelyaffectedbythe

implementation of community quarantines. The province’s pertinent offices ofMSS, BARMM

READi (orRapid EmergencyActiononDisaster Incidence), andMILG/LGUs took chargeof the

distributionoutsideCotabatoCity.

• AllottedaugmentationfundforLGUs

TheBangsamoroGovernment,throughtheOfficeoftheChiefMinister(OCM-BARMM),atotalof

₱155millionwasallottedtotheLocalGovernmentUnits(LGUs)allovertheBangsamororegion

inordertointensifytheireffortsincontainingthespreadofCOVID-19.EachprovincereceivedP5

millionwhileeachcitygotP2million,andeachmunicipalityreceivedP1million.TheremainingP8

millionwenttothe63barangayswhichwereturnedoverfromNorthCotabatotoBARMM.

• EnhancedtestingcapacityforCovid19

TheOfficeoftheChiefMinistersignedMemorandum

ofAgreementswiththeCotabatoRegionalandMedical

Center (CotabatoCity) and theAmaiPakPakMedical

Center (Marawi City) for the hospitals’ needed

laboratoryupgradeforRT-PCRTestworthP14million

and P5 million, respectively. Both hospitals are now

conductingPCR-TestforCOVID19.

• IsolationcentersforCovid19wereconstructed

A100-bedcapacityisolationbuildingforCovid19were

constructed.InCotabatoSanitariumHospitalthe100-

bed isolation facility was completed in just 40 days.

Also completed was the construction of isolation

facility inDatuBlahDistrictHospital.Groundbreaking

70loc.cit.,AccomplishmentReport71Ibid.,AccomplishmentReport

FromfocusgroupdiscussionsconductedinDatuPiang(Maguindanao)andPikit(NorthCotabato),herearesomequotes(looselytranslatedtoEnglish)fromtheparticipantsontheassistancetheyreceived:“Verymuchimprovedthanwhatwe

usedtoreceivewhenwewerebakwits.”

“Ourreliefpackisverygenerousandcan

reallyfeedourfamilies”.

“Asveteranbakwits,wewereusedtothe

sparserationofsardines,noodlesand

fivekilosofrice.Now,yougetcontented

becausereliefgoodsarereallyrelief

goods.”

“Wereceived10kilosupto25kilosgood

qualityrice,cornedbeef,chickenloaf,

tunaflakes,eggs,andvegetables.We

alsoreceivedsoap,alcoholandface

masks,coffee,andsugar.”

“Withtheadequatereliefgoodsreceived

onecannowopenasari-saristore.”


ceremonies were held for the isolation facilities in

Basilan,Sulu,Tawi-TawiandLanaodelSur.

• ImplementedSocialAmeliorationProgram

The SAP Social Amelioration Program (SAP) benefits were directly distributed to 506,954

beneficiariesintheregion.Outofthisnumber,325,975are4Psmemberswhile180,979arenot.

• Madehealthservicesaccessible

Ayudang Medika Mula sa Bangsamoro Government, popularly known as AMBAG, has two-

prongedpurposes;onetoprovidemedicalassistancetoindigentandpoorBangsamororesidents,

andsecondtoenhancetheaccessibilityofhealthservices,medicines,andmedicalproceduresto

itsconstituents.Asof30July2020,theAMBAGhasprovidedmedicalassistanceto5,799patients

through its 10 partner hospitals. The BARMM has recently entered into a Memorandum of

Agreement (MOA)with Southern Philippines Medical Center (SPMC) to cover not only Moro

patientsbutalsoindigenousandChristianswhoneedthemedicalservices.


TransitionIssuesandChallenges

1. UnderstandingthecontextandcomplexityoftransitionfromARMMtoBARMM

A closer lookat the tasks anddemandsof the transition from theARMMto theBangsamoro

Governmentwillshowthatitessentiallyencompassestwostages.One,transitionfromtheARMM

totheBTA.And,two,transitionfromtheBTAtotheBangsamoroGovernment.AsofthisMidterm

Review,thefirststageofthetransitionisalreadyaccomplishedwiththefullturnoverofpowers,

functions,properties,assetsandrecordsoftheARMMtotheBTAthroughtheOfficeoftheChief

Minister.

The second stage of transition from the BTA to the Bangsamoro Government is muchmore

challenging and complex as it necessitates the establishment of a parliamentary form of

government.On this score, bothNationalGovernment andBangsamoroareembarkingonan

uncharteredpoliticalexperimentationwhichisladenwithmorequestionsthananswers.

BTAMemberAbduraofMakakua indicated theneed towiden theunderstandingandadopta

deeper meaning of transition to include how to change the mindsets as mujiahideens to

governmentbureaucratsorsittingmembersoftheParliament.QuotingMPMakakua:72

BecausethetransitionwearereferringhereisnotonlyachangeofARMMtoBARMM.Thisisnotajustchangeofanemployeetoanother.Thethingthattheymustunderstandisthemind setting of the people. Firstly, we were trained for 40 years to fight against thegovernment.Weweretrainedtoseeonlytheworstofthegovernment.Ourtrainingfor40yearswas on how to defeat government. Nowwe arewith government.We joined thegovernmentinordertostoptheatrocitiesinMindanao.OurintentionitstoptherecurrenceofviolenceinMindanao.WeseethatifwejointhegovernmentthereisnomorejustificationfortheextremistgroupstocometoMindanao.Onourside,itistoletthepeopleseeourdesireforself-determination.Meaningtosay,wejoinedthegovernmentwithoutknowingwhatgovernanceis.ImyselfdonotknowhowtousetheMOOEinmyoffice.ThatiswhyIaminvitingeveryonetohaveadeeperunderstandingofwhattransitionisandthecontextwhyweareallhere.

Intermsofcontext,itiscriticaltomentionthatthetransitioniscloselyanddirectlylinkedtothe

normalizationprocess.QuotingMinisterMohagherIqbal:73Thesearetwosidesofthesamecoin.ThePoliticalandNormalizationtracksareintertwined.Onecannotproceedwithouttheother.

Forexample,Phase3oftheTransitionPeriodprovidesthat35%ofthe40,000MILFcombatants

shall be decommissioned from the ratification of the BOL up to the establishment and

72InterviewwithMinisterAbdulraofA.Macacua,BTAMemberandExecutiveSecretary,OfficeoftheChiefMinister,CotabatoCity,9August2020.73InterviewwithMinisterMohagherM.Iqbal,BTAMember,CotabatoCity,25September2020.


operationalizationofthepoliceforcefortheBangsamoro.Sincetheproposalonpolicingwasnot

approvedbyCongressduringtheBOLdeliberation,theenvisionedBangsamoroPoliceForcedid

notmaterialize.What isprovided is theentryofMILFandMNLFmembers into thePhilippine

National Police with specific affirmative action with regards to age, height and educational

attainment.However,aperusalofthepertinentprovisionunderArticleXISection2willshowthat

itissilentonthespecificnumberofMILFandMNLFmembersthatwillbehiredinthePNP.Upto

thisMidtermReview,thematterhasnotyetbeenimplementedbytheparties,asspecificissues

willhavetobeagreedandsettledattheleveloftheIGRB.

Chairman Al Haj Murad Ebrahim expressed that the main challenge in the transition is the

transformation of MILF from a revolutionary organization to leading the BTA as interimgovernment.Hesaid:74

Thistransitionrequiresustotransformindividuallyandorganizationally.ThesecondchallengeisthetransformationofthestructureofthegovernmentfromtheARMMwhichispatternedafterpresidentialunitaryformofgovernmentintoaparliamentaryministerialform.So,withthesetwochallenges,itwillreallytaketimeforustoachievebecauseitcannotbedoneovernight.Ontheotherhand,wealsoseethatwhiledoingthetransformationwealsoneedtoperformasagovernmentbecauseifwewillnotperformthenthepossibleeffectwillbewewillhaveahardtimein 2022 because wemight not be able to present our accomplishments in the transition. Thistransitionisaveryshortperiodoftime.Ouroriginaldemandwassixyearsbutwecompromisedtothreeyears.Weagreedonthethreeyears.Wewillseewhatwecando.

2. Challengesaccompanyingthetransferofpowersandproperties

AsofFebruary26,2019,theARMMalreadyturnedoverpowers,functions,offices,properties,

personnel and assets to the BTA while the turnover of the regional offices by the national

governmentisstillsaddledwithdifficultiesonthedetails.

• TransferofpowerfromARMMtoBARRMlegallydeficientTheBOL requires also that an inter-agency committeeheadedby theOfficeof thePresident,

composedoftheDepartmentofBudgetandManagement,CommissiononAudit,andCivilService

Commission,shallconducttherequisiteinventorytoensurethattheliabilitiesoftheAutonomous

RegionalGovernmentinMuslimMindanaounderlaws,contracts,orobligationsshallbeassumed

bytheNationalGovernmentpriortothetransferofpowers,functions,assets,capital,records,

funds,receivables,equipment,andfacilitiesoftheAutonomousRegionalGovernmentinMuslim

MindanaototheBTA.Forthispurpose,asummaryreportonthestatusoftheARMM,asofthe

date of the ratification of the BOL, including information on the status of the devolution,

personnel,properties,andassetsoftheARMM,shallbeturnedovertotheBTA.75Thewisdom

behindArticleXVISection10istoguaranteethattheBTAwillstartwithacleanslateasitisnot

obligedtoinherittheliabilitiesandobligationsofthedefunctARMM.

74InterviewwithChairmanAlHajMuradEbrahim,CotabatoCity,10August202075loc.cit.,Section10.


• NointeragencycommitteewasformedTherequired inter-agencycommitteewasnotmaterialized.76Therewasnorequisite inventory

thatwasconductedinordertoensuretheliabilitiesunderlaws,contracts,orobligationstobe

assumed by the National Government. In fact, in Book 1 of the ARMM Transition Report

categoricallystatedthatthefiguredidnotincludethetotalaccountspayabletovariouscreditors,

such as contractors and suppliers, as well as, project Memoranda of Agreements with Local

Government Units.77 The liabilities as stated in the ARMM Transition Report referred to the

unremitted premiums and employment loans to the Government Service Insurance System,

HomeDevelopmentMutualFund,PhilippineHealthInsuranceCorporation.

TheARMMTransitionReportstatedthatthetotalassetsincludeland;building;machineryand

equipment; transportation equipment; and furniture, fixtures and bookswith a total carrying

amount of P20,883,162,742. The value of the land P18,527,331,573, excluding that of the

CommissionofHigherEducation’s(CHED)sizeabletractsoflandinLanaodelSur,Maguindanao,

and Sulu. Also excluded are all the ARMM-SPDA projects and the Cabatangan property in

ZamboangaCity.The ARMMTransitionReportalsomentionedthatnotallparcelsof landare

coveredbyusufructsanddeedofdonations,particularlythoseassetsthatpredatesthecreation

oftheARMM.78

TheCOA–BARMMconfirmedinaninterviewthattherewas,indeed,nointer-agencycommittee

formedtoconducttheinventory,asrequiredunderArticleXVISection10oftheBOL.79On27

September2019,theCOAofficiallytransmitteditsConsolidatedAnnualAuditReport(CAAR)on

theAutonomousRegionalGovernmentforCY2018toInterimChiefMinisterEbrahim.Allassets

and liabilities, as stated in the CAAR are recorded in the current books of the Bangsamoro

Government. Itwillbeworthwhiletoreviewthesefinancialaccounts inthe lightoftheclear

provisionsoftheBOL.

• PurchaseofrealpropertieslocatedoutsideoftheARMMhasyettobematerializedAnessentialpartinthefulltransferofpowersandpropertiesoftheARMMtotheBangsamoro

GovernmentisthepurchasebytheNationalGovernmentofthelandandpermanentbuildingsor

structures located outside the ARMM. These properties are either owned, controlled,

administered,orinpossessionoftheARMM.TheBangsamorogovernmentintendstoconductan

inventoryofthesepropertiesandtorequestforanofferpricefromtheNationalGovernment.80

Under the BOL these real properties will be purchased by the National Government and the

proceedsthereoftobeturnedovertotheBARMM.ThisisoneprovisionintheBOLthatisawaiting

implementation.

76op.cit.,Lorena.77ARMMTransitionReport,Book1MainReport,p13978Ibid.,p13879InterviewwithMr.AntonioS.GepteVIII,StateAuditorIII,CommissiononAudit-BARMM,26August202080InterviewwithAttorneyGeneralElijahB.Dumama-Alba


• CotabatoCityhasyettobeturnedtotheBangsamoroGovernmentUnder the BOL, the establishment of the Bangsamoro Autonomous Government and the

determinationoftheterritorialjurisdictionshalltakeeffectupontheratificationoftheOrganic

Lawbythemajorityvotescast inaplebiscite.Theresultsof the21January2019plebiscite in

CotabatoCityshowedaYESvotesof36,682overtheNOvotesof24,994.81On25January2019,

theNationalPlebisciteBoardofCanvassersproclaimedthatCotabatoCityshallformpartofthe

BangsamoroAutonomousRegioninMuslimMindanao.However,tothisdate,CotabatoCityhas

yettosubmititselftotheadministrativejurisdictionoftheBangsamoroGovernment.

On7February2020,CotabatoCityMayorAtty.CynthiaGuiani-Sayadisentaneight-pagepetition

lettertoPresidentRodrigoDutertetoholdinabeyancetheturnoverofCotabatoCitytoBARMM.

Inthepetition letter, themayorappealedforastatusquountilsuchtimethatthethree-year

transition period has been completed and the BARMM bureaucracy would have been fully

operational.82 If the petition is approved itwouldmean the exclusion of Cotabato City from

BARMMuntil30June2022.ThismatterisalreadyinthehandsofPresidentDutertewhocalled

Mayor Guiani-Sayadi, Minister Iqbal, other BARMM officials, and Cabinet Secretaries on 4

February2020inMalacañangtodiscusstheissue.Accordingly,theDILGwasalreadyinstructed

bytheOfficeofthePresidenttocompletetheturnoverbyDecember2020.

Todate,theBARMMiswaitingfortheDILGtoturnoveritsregionalofficeinCotabatoCitytothe

BARMMsothatitcanalreadysuperviseandregulateCotabatoCity.AsearlyasJanuary25,2019,

upontheproclamationbyComelecthattheaffirmativevotewoninthePlebiscite,CotabatoCity

hasbeenpartoftheBARMM.TheMILG,however,couldnotyetexercise itspowerofgeneral

supervisionyetbecausetheDILGhasnotyetturnedoveritsregionalofficetotheMILG83.

Formanyobservers,itbogglestheirmindshowtheCityMayorofCotabatocanberecalcitrant,

openlydefythelaw,disobeytheorderoftheCOMELEC,andrefusetorespectthesovereignwill

oftheelectorate.

• TransferofnationalagencieslocatedinCotabatoCityhasyettoberealizedSection 11 of Article XVI provides for the disposition of personnel and assets of national

governmentagencieswhosemandateandfunctionsarealreadytransferredtoornowvestedin

theBARMM.Specificallycoveredwiththislegalprovisionaretheregionalofficesofthefollowing:

1 Department of Agriculture and Bureau of Fisheries and Aquatic Resources, National

FoodAuthority,NationalIrrigationAuthority,PhilippineCoconutAuthority2 DepartmentofAgrarianReformanditsAdjudicationBoard3 Department of Education – 19 Higher Education Institutions, Cotabato City Division

Office,Supervisionof2StateUniversityandColleges4 DILGOfficeinCotabatoCity

81NPBOCResolutionNo.01-19datedJanuary25,201982https://www.mindanews.com/peace-process/2020/02/cotabato-city-seeks-exclusion-from-barmm-until-june-30-2022/83Ibid.


5 DepartmentofLaborandEmployment(BureauofLaborRelationsandStandards,POEA,OWWA,NLRC)

6 Department of Public Works and Highways particularly the Cotabato City DistrictEngineeringOffice.

7 DepartmentofScienceandTechnologyparticularlyitsResearchCenters,ResearchandDevelopmentactivitiesintheLigawasanMarsh,SeaweedResearchandDevelopmentCenteratMSU-Tawi-Tawi)

8 DepartmentofTradeandIndustry,DepartmentofTourism,CooperativeDevelopmentAuthorityandBoardofInvestments

9 Department of Transportation, LTFRB, LTO, National Telecommunications, CAAP(AwangAirport,Jolo,SuluAirportandSanga-SangaAirportinTawi-Tawi,MARINA)

AsofthisRapidMidtermReview,theaboveofficesarenotyetfullytransferredtotheBARMM.

Similarly, the properties and assets, which are mandated to be transferred within three (3)

monthsfromtheorganizationoftheBTA,hasnotyetbeendone.

TheIntergovernmentalRelationsBoard(IGRB)alreadyconvenedasaTechnicalWorkingGroup

(TWG)andhashadapreliminarydiscussionontheupdateofthelistoftheNationalGovernment

assetsidentifiedtobetransferredtotheBangsamoroandthetypeoflegalinstrumenttoeffect

thetransfer.ThelistoftheNationalGovernmentagencieswithofficesinCotabatoCityandinthe

63barangaysinNorthCotabatowhicharetobetransferredtotheBangsamoroGovernmentwas

alreadysubmittedtotheOfficeofthePresidentialAdviseronthePeaceProcess(OPAPP).The

TWGwasexpectingfortheTransitionTeamtobeorganizedbeforethemonthofSeptember2020.

• PhasingoutofARMMpersonnelandoffices:wasitgradualorabrupt?Asmentionedearlier,thephaseoutoftheARMMpersonneltookplaceinOctoberuntilDecember

2019. More than 6,00084 of the defunct ARMM employees whose positions were no longer

extendedwereaffectedbythephaseoutprogram.

BasedonthedatestheNCAswerereleased,itcanbesaidthatthemajorityoftheemployeeswho

werephasedoutreceivedtheirseparationincentivesonlyin2020.Itcanbeassumedfurtherthat

only the first batch (October) of the retrenched ARMM employees received their separation

incentiveswhiletheremainingtwobatches(NovemberandDecember)receivedtheirwithinthe

monthsofFebruarytoAugust2020.

AkramLatiphhadthistosay:85

SomeretrenchedARMMpersonneldidnotreceivetheirseparationpay.Whatshouldhavebeendonewasnottoretrenchunlesstheseparationpayisavailableandgivenrightthereandthen.ThishascausedmisgivingstoalotofARMMpersonnel.

TheOrganicLawspecificallystatedthatthephaseoutwillbegradual.However,therearevarying

interpretationsoftheterm“gradual”phaseout.WhilebasicallyitwaslefttotheGovernmentof

84NotethatitweretheprintmediathatprovidedthisnumberofARMMpersonnelaffectedbythephaseout.TheBARMM-OfficeoftheAttorneyGeneralprovidedalesserfigureof3,899,whichcanbeassumedastheemployeeswithplantillapositions,attheexclusionofothertypesofemployment.85VirtualinterviewwithAcramLatiph,PhD.,ResearchCoordinatorandAssociateprofessorinEconomics,MindanaoStateUniversity,24August2020.


theDaytoimplementthephaseoutoftheARMMemployeesaccordingtowhatwasstipulatedin

the BTA approved Enhanced Transition Plan, questions now arise whether it was a gradual

phaseout of the ARMM offices and personnel that took place in the months of October to

December2020.

The interpretation of gradual phaseout depends on whose perspective. BTA Members Rasul

MitjmugandAmirMawallilsharedthesameopinionthatthegradualphaseoutdidnotnecessarily

meanashortperiodofthreemonths(OctobertoDecember2019)butathree-yeartimeframe

withinthethree-yeartransitionperiod(March2019toJune2022).

BTAMemberMitmugsaid:86

Iwashopingitwouldnotbedoneina“onetime,bigtime”manner.That it [phaseout]couldhavebeendonebyphases,batchesorbyoffices.Forme,theprocesswasnotwhatthelawenvisioned.Peopleonthegroundwerethemostaffected.Bythetimethephaseoutwascompletedtherewere nomore personnel to continue the delivery of services. LGUs complained.While attempts to hire and rehire thru contract of service and consultants so that thedeliveryofservicesiscontinued,thehiringprocessgotcomplicatedandcompoundedbytheeffectsoftheCorona19viruspandemic.

AnotherBTAMember,EngineerBaintanAdil-Ampatuanechoedherreservationoverthematter

ofphasingoutof theARMMoffices.Shesaidthatwhile itwaswritten intheBOLthegradual

phasingoutoftheoffices,whattookplacewasnotinaccordancewiththelaw.Sheadded,“the

phasingoutoftheofficescouldhavebeendonegradually.Whatwasputinplace,however,was

everything to

Documents

RAPID MIDTERM REVIEW OF THE BANSAMORO TRANSITION … · 2020. 12. 4. · rights of Indigenous Peoples BTA 10. Priority bill enacted a. Bangsamoro Administrative Code BTA b. Bangsamoro