Summary
In line with the terms of reference of the Third Party Monitoring Team (TPMT), this Sixth Public Report is intended to provide an overall assessment of developments in the implementation of the agreements between the Government of the Philippines (GPH) and the Moro Islamic Liberation Front (MILF). It covers the period from March 2019 to October 2020, continuing from the Fifth Public Report on the period July 2017 to February 2019.
The reporting period witnessed several key milestones in the peace process, including in particular the inaugural session of the Bangsamoro Transition Authority (BTA) and the inauguration of the Bangsamoro Autonomous Region in Muslim Mindanao (BARMM) on 29 March 2019 in Cotabato City. Under the normalization track, the launch of the second phase of decommissioning MILF combatants took place on 7 September 2019 in Sultan Kudarat, Maguindanao. Both events were attended by President Duterte, signifying that the peace process between the Government of the Philippines (GPH) and the Moro Islamic Liberation Front (MILF) continues to be a priority of the Duterte administration.
The TPMT notes as positive the significant progress in the establishment of the Bangsamoro as an autonomous political entity, thus laying the foundation for meaningful self-governance under a parliamentary form of government. This was reflected in the appointment of BTA members and a BARMM Cabinet as well as in setting up a ministerial structure. Priority codes which will define the future system of governance in the BARMM are at various stages of preparation, and the all-important Bangsamoro Administrative Code was passed by the BTA Parliament on 28 October 2020. The legislative work continues at steady pace even though restrictions on travel as a result of the Coronavirus disease (COVID-19) in the BARMM have impacted on the timeline of the passage of priority legislations. The BTA was able to respond effectively to the pandemic by distributing relief assistance and providing for testing and isolation facilities, thus demonstrating a high degree of determination and self-reliance.
It is noteworthy that the level of interaction between the National Government and the Bangsamoro Government through the Intergovernmental Relations Body (IGRB) has intensified, with most IGR mechanisms now in place and meetings featuring increasingly full agendas, excepting the Philippine Congress – Bangsamoro Parliament Forum (PCBPF) and the Council of Leaders.
Issues to be addressed under the political component of the transition include the delayed transfer of Cotabato City into BARMM administrative structures, which is in breach of the results of the plebiscite, as well as the circuitous ways in which block grant allocations reach the BARMM. Resolving these questions would go a long way in further building confidence between the parties.
The third round of decommissioning has not yet commenced and is behind schedule. To ensure the success of the third round, and to complete the decommissioning process for the combatants from the 2nd phase, expectations of the combatants and their communities need to be addressed. It is critical to have clear information on what interventions the decommissioned combatants will receive, by when, and through what mechanisms. Although all decommissioned combatants have received some assistance, the bulk of the socioeconomic packages has not yet been provided, and in particular provisions for land and housing assistance for decommissioned combatants remain unclear at this stage.
The provision of a police force for the Bangsamoro is an important part of the Comprehensive Agreement on the Bangsamoro (CAB), particularly in the Annex on Normalization. The CAB provisions were amended in the BOL to ensure consistency with the 1987 Philippine Constitution. It would be important to arrive at solutions on how the policing elements in the BOL could be reconciled with policing provisions in the CAB.
Joint Peace and Security Teams (JPSTs) are a creative solution of the GPH and the MILF to work together to maintain peace and order during this interim period in which the BARMM is being established but former combatants are not yet fully decommissioned. This would help communities that have had historically negative impressions of the Armed Forces of the Philippines (AFP) and the Philippine National Police (PNP) to develop trust in the regional and National Government. Ensuring an effective JPST presence on the ground could be one of the most visible assurances of the benefits of peace. JPSTs have the advantage that their members can be assigned in areas where they are familiar with the security situation.
A number of security-related elements under the Normalization sub-track lag behind with little or no progress. The lagging elements include disbandment of Private Armed Groups (PAGs) within BARMM and neighboring areas, transformation of MILF camps, amnesty for MILF members, redeployment of the AFP, and transitional justice and reconciliation measures.
The rehabilitation of Marawi City is proceeding at very slow pace. The most important issue raised during our consultations with internally displaced persons (IDPs) and civil society organizations in Marawi City was the need for the immediate return of the residents of the most affected area. There is a need to catch up on the education and health sector, and basic utilities and infrastructure that would enable their immediate return. Taking up the recommendations in the BTA special committee report (CR No. 35) to respond to these concerns will be important for community healing.
Building a new peaceful Bangsamoro requires coming to terms with legitimate grievances, historical injustices, human rights violations, land dispossession and marginalization in order to have true healing. It is important to reinforce efforts on transitional justice and reconciliation to prevent future conflict and escalation of grievances.
There are only about 18 months left until the elections in May 2022. The Covid pandemic poses a significant challenge for the BARMM and the transition. Against this background, the TPMT is encouraged to note that the peace process remains fundamentally on track and that both parties continue to be fully committed to the implementation of the signed agreements. But it has become clear that many elements of the transition process will require more time in order to bring the process to a successful conclusion. This relates in particular to the normalization track which should go hand in hand with political achievements.
Looking forward, and in spite of possible delays as a result of the Covid-19 pandemic, the TPMT encourages the parties to continue to demonstrate a spirit of continuity in the implementation of the peace process, in particular by:
- Completing work on the priority legislation for the BTA, to create the foundations of governance for the BARMM;
- Completing the administrative transfer of Cotabato City including offices of the National Government into the BARMM as per the plebiscite results;
- Addressing the issue of socioeconomic support for decommissioned combatants and their families as a necessary condition for their transition to civilian life;
- Putting the Bangsamoro Normalization Trust Fund (BNTF) into operation as quickly as possible, specifically for the provision of socioeconomic development programs and the transformation of MILF camps;
- Reducing the gap in perspectives between the two parties in the field of policing;
- Further expanding the network of Joint Peace and Security Teams (JPSTs) and rendering them fully functional towards ensuring peace and order in communities with a sensitive security environment.