Chapter 15

Peace and development cannot be achieved independently. The government is committed to pursue both with equal vigor in order to attain political and socioeconomic stability as well as cultural harmony in Mindanao, in conformity with the rule of law and in accordance with constitutional processes. Thus, as government pursues the development of Mindanao, it will also forge peace with the Moro National Liberation Front (MNLF) and the Moro Islamic Liberation Front (MILF) without compromising the country’s national integrity. The government shall also pursue a military response to the banditry and criminal acts of the Abu Sayyaf although socioeconomic development shall also proceed in the areas affected by hostilities with this group.

The principle of social justice and respect for ethnic traditions shall guide peace and development efforts. Social justice in Mindanao calls for the promotion of equal access to services and facilities and development opportunities while at the same time strengthening social and cultural structures and relations between and among the cultural groups. With Christians, Muslims, Lumads/indigenous peoples (IPs) comprising Mindanao’s multiethnic society, peace and development efforts shall be founded on stronger social and cultural harmony and the respect for constitutional rights and liberties of each group. Solutions to tensions shall be founded not only on present day realities but on an appreciation of historical antecedents that lead to a better understanding of the struggle for self-rule and determination. Appropriate interventions that uplift social and economic well-being shall consider the uniqueness of each culture and the preservation of cultural heritage. There shall be an institutionalized response to the accommodation of ethnic traditions.

ASSESSMENT AND CHALLENGES

Mindanao is the second largest group of islands in the country covering around 35 percent of the country’s total land area. With most of the regions located outside the typhoon belt and endowed with two large river basins, Mindanao holds high prospects for agri-industrial development. About 18 percent of the country’s gross domestic product (GDP) comes from Mindanao including about one-third of the country’s agricultural outputs. It is the major producer of rubber, pineapple, cacao, banana, coffee, cassava, corn and coconut. However, these development potentials are constrained by the following challenges: (a) recurrence of armed conflict; (b) lack of harmony due to diverse cultures; and (c) low level of socioeconomic development.

Recurrence of Armed Conflict

The armed response to armed social movements promoted by the MILF and the Local Communist Movement (LCM) has resulted in the deterioration of peace and the slow pace of development in Mindanao. The criminal acts of the Abu Sayyaf group, which should not be taken in the same light as the other armed struggles, have also stalled the development of Mindanao.

Because of the peace problem, very limited economic activities can prosper. In fact, this problem has significantly exacerbated the disparity in the level of development between conflict and nonconflict areas within Mindanao, and between Mindanao vis-à-vis the other regions of the country. Peace and order conditions have also affected the delivery of basic services and the implementation of development projects which are important in addressing poverty and economic inequity.

Lack of Harmony Due to Diverse Cultures

The multiethnic composition of Mindanao’s society poses a major challenge in achieving social cohesion among the different religious ideologies and diverse cultural values, customs, traditions and practices. It has actually contributed to the area’s vulnerability to armed conflict and political tensions. In 1996, the Muslim population comprised about 18 percent of the population of Mindanao while the Lumads/IPs accounted for 8 percent (Figure 15.1).

Cultural inequity revolves around two issues: (a) loss of ancestral lands; and (b) proper representation in government. The Lumads have protested the large-scale loss of their ancestral domain and have been trying to recover their original land rights. Disputes over land ownership have essentially been a confrontation between customary and legal rights. Efforts to protect legal rights have elicited bitter feelings on the government and alienation among claimants, more often among Muslims, Lumads and Christians. Republic Act (RA) 8371 or the Indigenous Peoples Rights Law or IPRA, despite bottlenecks in implementation, is a good attempt to redress this plight since it guarantees the realization of their right to ancestral domain and considers their customs, traditions, values, beliefs, interests and institutions.

Meanwhile, the difference in the system of governance, which is sultanate or the datuship system, has also resulted in cultural and political tensions and isolation. The challenge is to allow institutional changes that will permit active involvement and participation rather than alienation of various cultural groups.

Cultural inequity revolves around two issues: (a) loss of ancestral lands; and (b) proper representation in government. The Lumads/IPs have protested the large-scale loss of their ancestral domain and have been trying to recover their original land rights. Disputes over land ownership have essentially been a confrontation between customary and legal rights. Efforts to protect legal rights have elicited bitter feelings on the government and alienation among claimants, more often among Muslims, Lumads/IPs and Christians. Despite bottlenecks in its implementation, Republic Act (RA) 8371 or the Indigenous Peoples Rights Law (IPRA), is a good attempt to redress this plight since it guarantees the realization of their right to ancestral domain and considers their customs, traditions, values, beliefs, interests and institutions.

Meanwhile, the differences in the system of governance, including the sultanate or the datuship system, have also resulted in cultural and political tensions and isolation. The challenge is to allow institutional changes that will permit active involvement and participation rather than alienation of various cultural groups.

Almost 48 percent of families in Mindanao live below the poverty level which is higher than the national average of 34.2 percent. The situation is most dismal in ARMM where more than 69 percent of the families are poor, followed by Region XII where half of the families are poor. Reducing poverty in these two regions is a vital challenge since the heavily conflict-affected areas are located here with residents mostly Muslims and Lumads/IPs.

The number of people in Mindanao with access to safe drinking water, sanitary toilet and electricity is very much lower than the national average. In ARMM the families that have access to these services are only about one third of the national average (Table 15.1).

The rich natural endowments of Mindanao provide vast potentials for the economic growth not only of the Mindanao regions but the entire country as well. However, agriculture production, wherein Mindanao holds comparative advantage, is hampered by limited access to efficient product markets, appropriate technology and poor infrastructure support facilities.

TARGETS AND STRATEGIES

Peace-building and socioeconomic upliftment shall be simultaneously undertaken to achieve peace and development in Mindanao. These efforts shall take into consideration the multiethnic composition of Mindanao. Thus, culturally-sensitive programs and projects shall be undertaken with ensured participation by the communities in the identification, design, implementation and monitoring of programs and projects, both in peace-building and socioeconomic development.

Peace-building Efforts

Immediately after assuming office, President Gloria Macapagal-Arroyo called for the reconstruction of the peace process. Confidence-building measures were put in place to create a favorable environment for resuming peace talks with the MILF, such as the reconstitution of the Peace Panel and the declaration of a Suspension of Offensive Military Operations (SOMO).

In the first seven months alone, this Administration forged the following agreements with the MILF: (a) Agreement on the General Framework for the Resumption of Peace Talks signed between the Government of the Republic of the Philippines (GRP) Peace Panel and the MILF on March 24, 2001; (b) Agreement on Peace which covers three aspects namely, security, rehabilitation and ancestral domain, all of which shall promote the general interest of the Muslims and the indigenous peoples and guide actions toward a comprehensive, just and lasting political settlement of the conflict in Mindanao. This was signed on June 22, 2001; and (c) Agreement on General Ceasefire signed on August 7, 2001.

Meanwhile, the third phase of the 1996 GRP-MNLF Final Peace Agreement (FPA) has been executed with the conduct of the plebiscite on August 14, 2001. The existing four ARMM provinces (Lanao del Sur, Maguindanao, Sulu and Tawi-Tawi) ratified the Organic Act for the Autonomous Region while Basilan Province and Marawi City have opted to join the Autonomous Region. The elections for the new set of ARMM officials shall be held in November 26, 2001. The government is committed to ensure smooth transition to the new autonomous government as well as pursuing socioeconomic development of the new area of autonomy.

An important component of peace-building is the rehabilitation of communities damaged by the armed conflict with the MILF and the return of affected population to their communities. Thus, relief and rehabilitation efforts have been simultaneously pursued hand- in-hand with the peace talks. These efforts include: (a) demobilization of evacuation centers and immediate return of the evacuees to their homes; (b) repair of damaged houses and facilities; (c) psychosocial healing among vulnerable groups such as the children, youth and women; and (d) reconciliation with and economic empowerment of excombatants as they are integrated into the mainstream. The capacities of the local government units (LGUs), nongovernment units (NGOs) and the affected communities in providing emergency and rehabilitative services shall be improved to effectively respond to the needs of conflict victims.

About 13,000 evacuee families still need to return to their homes. Augmentation funding amounting to P40 million shall provide for the needs of about 3,500 returning family evacuees for food assistance, water and sanitation and basic livelihood support. Some of the specific relief and rehabilitation programs for conflict-affected areas include food (e.g., food/cash for work, supplemental feeding) and shelter assistance; self-employment assistance; training and capability building; construction of Day Care Centers; and assistance to individuals in crisis situations.

In the next 12 months, P500 million from the OPEC fund shall be spent for community projects in the affected areas. At the same time, a social assessment shall be undertaken whereby prioritized needs of the communities will be determined. Project preparation for a social fund-type of assistance will also be undertaken which, when implemented, may be able to fund community programs such as small-scale social and infrastructure projects.

The involvement of Mindanaoans, particularly the Muslims and the Lumads/IPs, to peace and development efforts shall be encouraged with their increased representation in the government. Local and indigenous structures (e.g., community and tribal leaders) shall also be used in community-level conflict arbitration and management. Indigenous peoples in Mindanao shall also benefit from the government’s target on land reform by fasttracking the processing and issuance of ancestral domain titles for indigenous peoples.

Socioeconomic Upliftment of Mindanao

Socioeconomic development shall be pursued simultaneously with the peace-building efforts of the government. This shall be done through the provision of basic services such as food and nutrition, health, water and sanitation, basic education/literacy and employment/livelihood opportunities. Infrastructure support facilities designed to promote growth and development shall also be put in place.

Mindanao will benefit from nationwide antipoverty programs such as the "Kapit-Bisig Laban sa Kahirapan (KALAHI)" program. The KALAHI program includes strategies on asset reform which recognizes concerns on ancestral domain; provision of basic human development services; provision of livelihood and employment opportunities; local sectoral representation in governance and institution building; and social protection and security from violence. There is also a project on the Advancement of Women for Peace and Development in Mindanao.

In health and nutrition, the following specific strategies shall be adopted: (a) institutionalize primary health care approaches such as participatory development and intersectoral collaboration and promote the use of culturally-sensitive mechanisms for meeting the basic health and nutrition needs of the Muslims, Lumads/IPs and other disadvantaged groups/sectors of society in Mindanao; (b) construct or establish basic and primary health centers at areas strategic and accessible to Muslims and Lumads/IPs both affected and unaffected by armed conflicts; (c) employ traditional health workers to complement regular government health workforce; and (d) tap traditional or indigenous communication channels among Muslims and Lumads/IPs to promote and adopt preventive and curative health and nutrition practices consistent and sensitive with cultural norms and practices.

Specific programs directed at improving the health services are the Urgent Expanded Program for Immunization for the 20 Poorest Provinces nationwide; the Family Health Management by and for the Urban Poor Settlers in selected regions; the establishment of Marawi City Maternity and Childrens’ Hospital; the Upgrading of Medical Equipment of Zamboanga City Medical Center in Region IX; and the Provision of Basic Medical Equipment for the Provincial Hospitals, Rural Health Units and Barangay Health Stations in the Special Zones of Peace and Development (SZOPAD).

The Mindanao Basic Urban Services Sector Project shall provide basic infrastructure facilities such as water, supply for urban centers and urbanized municipalities in Mindanao.

In education, basic service delivery will be improved especially in Western, Southern and Central Mindanao including ARMM. Accreditation of specialized forms of education shall be pursued, like the Madaris system for the Muslims, which is a component of the Comprehensive Mindanao Education Program (CMEP). The CMEP aims to achieve the following: (a) standardize the curriculum of the Madaris to make it possible for students to transfer to regular DECS schools; (b) integrate the Madaris into the mainstream of national education system; (c) revise the basic education curriculum for Muslims and developing the learning systems for the Lumads/IPs to make them more relevant to their culture and values; and (d) provide subsidy to special schools and granting of scholarships to deserving Muslims and Lumads/IPs. Other programs aimed at improving the education system include the Mindanao Basic Education Development (Mindanao-wide); the Basic Education Assistance for Mindanao covering ARMM and Regions XI & XII; the Third Elementary Education Project in North Cotabato and Agusan, Surigao and Zamboanga del Sur; the Expansion of

Dual Education and Training Project in selected areas in Mindanao; and the Educational Facilities Improvement Program nationwide.

Given its rich agricultural resources, Mindanao shall be developed as a food basket and exporter of high value agriculture and fishery products. Its comparative advantage in the production of palm oil, coconut, corn, rubber, cacao, banana, coffee and cassava, shall be pushed through the full implementation of the Agriculture and Fisheries Modernization Act (AFMA) that would encourage intensified and expanded farming and agriculture-related activities. Similarly, the identified Strategic Agriculture and Fisheries Development Zones (SAFDZs) shall serve as centers for development and modernization in agriculture and fisheries. Integrated area development programs shall also be implemented such as the Davao Integrated Development Program (DIDP); South Cotabato, Sultan Kudarat, Sarangani, General Santos City (Socksargen) Food Security Plan and Fisheries Development Program; and the Zamboanga Peninsula and Basilan Integrated Area Devlopment Plan (ZAMBAS), among others. Complementing these efforts are the Mindanao Community Based Forest Resources in Regions IX to XI; Agrarian Reform Community Development Support Project covering the provinces of Lanao del Sur, Saranggani and Maguindanao; and the Mindanao Rural Development Program which is aimed at increasing agricultural production and efficiency and the diversification of rural economic activities in Regions IX to XI.

Infrastructure support facilities, particularly irrigation (e.g., Kabulnan, Malitubog-Maridagao, and Southern Philippines Irrigation Projects; and the irrigation component of the Lower Agusan Development Project) and road networks shall be provided considering that only about 27 percent of the total irrigable area in Mindanao is being served by irrigation system while only 24.6 percent of total road investments is devoted to Mindanao with majority of the regions having percentage of paved roads lower than 50 percent.

The provision of farm-to-market roads is very important in facilitating the marketing of agricultural produce and the distribution of farm inputs as well as transfer of technologies to the farms and to post harvest facilities such as the Rural Road Network Development Project in Zamboanga, Bukidnon, Davao Oriental, Cotabato and Maguindanao.

Arterial roads leading to administration and production centers shall be built or upgraded such as: the Pan-Philippine Highway (Surigao-Davao City portion); Butuan-Cagayan de Oro City-Iligan-Tubod road (73 km.); Bukidnon-Davao City road (105 km.); widening of Davao City-Gen. Santos road (46.4 km.); widening of Gen. Santos-Cotabato City road (50.6 km.); Tagum-Mati road (36.0 km.); Maramag-Kibawe-Kabacan road (30.6 km.); Cotabato-Pagadian-Zamboanga City road (416.2 km.); and Butuan City Bypass road (8.8 km.).

The President’s Bridge Program shall significantly contribute in improving road networks to facilitate transport of goods and services.

Considering Mindanao’s role as the gateway to the ASEAN, the east ASEAN Growth Area shall be invigorated by forging economic cooperation in the areas of trade, transportation and communication. Infrastructure support facilities shall be put in place to encourage investments and trading activities that would, in turn, create employment and livelihood opportunities.

The following programs shall be prioritized to boost trade and investments and tourism: terminal facilities improvement of Zamboanga, Cagayan de Oro and Butuan airports; airside facilities and air navigational modernization of Davao, Cagayan de Oro, Camiguin, Zamboanga, Cotabato, Butuan, Tawi-Tawi and Iligan airports; and construction of the Laguindingan, Cagayan de Oro airport.

Ports development and modernization projects include the Southern Philippine Ports Development Package (Davao, General Santos and Zamboanga ports); Cagayan de Oro port; the Pan-Philippine Highway Ferry Terminal (Zamboanga del Norte); and the ASEAN Highway Network Project (Zamboanga, Basilan and Jolo ports).

A feasibility study on a Mindanao railway shall also be conducted to explore the viability of railway transport system.

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