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Mindanao 2020: Peace and Development Framework Plan 2011-2030 (Full Report)
Mindanao 2020: Peace and Development Framework Plan 2011-2030 (Full Report)
MiNDANAO 2020
(2011 - 2030)
tAble OF cONteNts
ACKNOWLEDGEMENTS
I. WANTED: A NEW MINDANAO
A. B. C. D. Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 49 Refocusing Lenses: Recent Historical Perspectives . . . . . . . . . . . . . . . . . . . . . . . . . . 49 Mindanao 2000: What Had Been Achieved, What Remains To Be Done . . . . . . 49 Guiding Principles . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 53
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Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 65 Mindanawons and Their Ecosystems . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 65 Development with Degradation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 71 Shaping a Sustainable Mindanao Future . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 73
Iv. MINDANAO IN 2030: ThE MINDANAO ThAT WE WANT, ThE MINDANAO ThAT cOulD BE
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A. A Shared Vision for Mindanao . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 85 B. Mindanao 2020 Goals . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 85 C. Overall Mindanao 2020 Targets. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 86
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vI. huMAN DEvElOPMENT AND sOcIAl cOhEsION: A MINDANAO FrEE OF WANT, FrEE OF FEAr
1. 2. 3. 4. Overview Human Development Challenges Social Cohesion Challenges Seeds Of Hope
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list OF tAbles
Table 2-1. Table 3-1. Table 3-2. Table 3-3. Table 3-4. Table 3-5. Table 3-6. Table 3-7. Table 3-8. Table 3-9. Table 3-10. Table 6-1. Table 6-2. Table 6-3. Table 7-1. Table 7-2. Table 7-3. Table 9-1. Table 9-2. Table 9-3. Table 9-4. Table 9-5. Table 9-6. Table 9-7. Table 9-8. Table 9-9. Table 9-10. Table 9-11. Table 9-12. Table 9-13. Table 9-14. Table 9-15. Table 9-16. Table 9-17. Table 10-1. Table 10-2. Key Drivers to Mindanaos Present and Future Development Mindanao Population and Annual Growth Rates, 1995, 2000, and 2007 Mindanao Population by Gender Mindanao Population by Ethnic Group, 2000 Mindanao Key Island Ecosystems Mindanao Forest Types by Region CADT and CALT Approved for Mindanao Watershed Classification, Mindanao Groundwater Availability in Mindanao Environmental Damage from Mining Processes Environmental Alliances in Mindanao Gini Coefficients, Mindanao Regions vis-a-vis National, 1991-2006 Income Ratios of Top 10/20% to Bottom 10/20%, Mindanao Region vs. National, 2006 Baseline Human Insecurity Indicators GRDP of Mindanao Regions Mindanaos Share of Total Government Budget in Key Sectors and in GDP Tourism Clusters in Mindanao National Roads Development by Major Island by Region, 2009 Road Conditions in 2009 Vehicles Carried by RoRo in Mindanao Categories of Mindanao Airports by Region Busiest Philippine Airports, 2009-2010 Regional Shares and Growth Rates in Air Passenger Traffic, 2008-2009 Telephone Subscribers by Region, 2007 Community e-Centers in Mindanao, 2009 Centers of Excellence in Information Technology Education, 2007-2010 Mindanao Energy Capacity and Capability by Plant Type Sales and Consumption of Electricity in Mindanao, 2005-2009 Higher Education Institutions, 2009 Mindanao Government Income Structure By Administrative Subdivision, Distribution of ODA Loans, as of December 2009 ODA Distribution within Mindanao, 2009 Regional Allocation of the Expenditure Program, 2008-2010 Income and Expenditure Pattern of Mindanao Regions Key Legislative and Executive Policy Reforms List of Proposed Major Priority Projects
vII. EcONOMY AND ThE ENvIrONMENT: IN QuEsT OF A DYNAMIc, INclusIvE AND grEEN
1. 2. 3. 4. Overview Inherent and Latent Strengths Persistent Hurdles Key Opportunities
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D. Strategies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 130
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list OF FiGUres
Figure 1-1. Figure 2-1. Figure 2-2. Figure 2-3. Figure 2-4. Figure 2-5. Figure 3-1. Figure 3-2. Figure 3-3. Figure 3-4. Figure 3-5. Figure 3-6. Figure 5-1. Figure 5-2. Figure 5-3. Figure 6-1a. Figure 6-1b. Figure 7-1. Figure 7-2. Figure 7-3. Figure 7-4. Figure 7-5. The Mindanao Problem Temperature Increase Risk Map Effects of Sea Level Rise on Mindanao Coastal Areas Effects of Sea Level Rise, Northern Mindanao Coastal Areas Effects of Sea Level Rise, Basilan Island Coastlines Scenario Quadrants Mindanao Forest Cover Mindanao Watersheds Pulangi Watershed and River Basin Ecosystem Agusan Watershed and River Basin Ecosystem Mindanao Groundwater Map Biodiversity Rich Areas in the Philippines Conflict Map of Mindanao Lombok-Makassar-Sulu Sea Lane The Coral Triangle Human Development Index Map of Mindanao, 2006 Human Development Index in Mindanao (Values) Sectoral Shares in the Mindanao Economy, 2008 GRDP Growth Rate, Mindanao vs. Philippines, 1995-2009 Mindanao Deposits vis-a-vis Loan Portfolio, 1994-2008 Major Mineral Areas in Mindanao Mindanao Foreign Trade, 1995-2009
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Figure 7-6. Figure 7-7. Figure 7-8. Figure 8-1. Figure 8-2. Figure 9-1. Figure 9-2. Figure 9-3. Figure 9-4. Figure 9-5. Figure 9-6. Figure 9-7. Figure 9-8. Figure 9-9. Figure 9-10. Figure 9-11. Figure 9-12. Figure 9-13. Figure 9-14. Figure 9-15. Figure 9-16.
Tourist Arrivals in Mindanao, 1997-2009 Investment Equity Distribution in Mindanao, 2008 2009 BOI-Registered Investments, Sector Distribution Administrative Map of Mindanao Mindanao Land Use as of 2002 Motor Vehicle Registration, 2008 Ship Calls in Mindanao, 2001-2009 Passenger Traffic, 2001-2009 Cargo Throughput, 2001-2009 Container Traffic, 2001-2009 Strong Republic Nautical Highways Vehicles Carried by RoRo, By Share of Major Island Groups Power Generation in Mindanao, 2002-2009 System Losses, 2005-2009 Mindanao Supply-Demand Outlook, 2010-2030 ODA Distribution Minus Program Loans, as of December 2009 Budget Distribution by Area, 2010 Per Capita Budget Distribution by Area, 2010 Overseas Filipino Workers from Mindanao, 2009 Overseas Filipino Workers by Regional Share, 2009 Mindanao Remittance Value and Share to Total Philippine Remittance
list OF bOXes
Box 3-1. Box 6-1. Box 7-1. Box 7-2. Box 7-3. Box 8-1. Box 8-2. Box 8-3. Box 10-1. Mining and the Mamanwas Volunteer for Information and Development Assistance (VIDA) Program Lake Lanao Watershed: Symbol of Mindanao Environment Degradation Appropriate Solutions Need Not Be Costly Datu Paglas and the La Frutera Story Streamlining Registration in Business-friendly Quezon City When LGUs Cooperate A Private Sector Public Planning Initiative: The Mindanao TVET Roadmap Strategic Framework for Engagement: Guiding Interventions for Peace and Development in the Southern Philippines
It is my pleasure to greet our fellow Filipinos in Mindanao, and I also convey my warmest greetings to the Mindanao Development Authority, for the publication of the Mindanao 2020 Peace and Development Framework. In light of our goal to establish stability and progress, we must act as one people and be earnest in fulfilling these ideals. The 20-year roadmap for peace and development in Mindanao is a great challenge, but one that we can tackle if we are to sustain our collective efforts, for in this framework are the voices of the Mindanawons, all yearning for the renewal of their region. I am thus heartened by the resolve to effect holistic growth in Mindanao among our government and our people. May the Mindanao Development Authority remain as among our steadfast partners in the promotion of significant inter-regional developmental programs in Mindanao. And it is my wish that the diverse ethno-cultural, sectoral, and socio-economic background of the Mindanawons will serve as a profound inspiration for the revitalization of the land of promise.
list OF ANNeXes
Annex 2-A. Annex 5-A. Annex 5-B. Annex 6-A. Scenarios on Mindanaos Future The Vulnerability Map Summary of Violent Conflicts in Mindanao & Causes/Factors Millennium Development Goals
COMMITMENT OF SUPPORT
Republic of the Philippines MINDANAO DEvElOPMENT AuThOrITY to the
MINDANAO 2020
While Mindanaos economic performance in the past years has been encouraging, we know that there is much more that can be achieved for this island-region if its people are to reap the benefits of development widely and equitably. I commend all Mindanawons for rallying behind a common Mindanao agenda as embodied in this Mindanao 2020 Peace and Development Framework Plan for 2011-2030. This 20-year peace and development roadmap for Mindanao which was made possible through the support of the Australian Agency for International Development (AusAID), addresses the various challenges and opportunities of the island-region not only within the context of securing peace amid a history of conflict but also in terms of harnessing its inherently rich socio-economic potentials for the benefit primarily of Mindanawons. It should be emphasized that this blueprint for Mindanaos future goes well beyond economic and infrastructure development, and addresses the other key dimensions that are integral to Mindanaos holistic sustainable development, such as peace and security, human development and social cohesion, and governance and institutions. As a development framework, this holistic, integrative and multi-dimensional plan is hoped to transform Mindanao into a peaceful, integrated, cohesive and dynamic island-economy that will be at the forefront of our countrys sustainable development within the next twenty years. We, at the Mindanao Development Authority (MinDA), together with key stakeholders from across Mindanao enjoin all our fellow Mindanawons to set aside our past divisions based on ethnic, historical, religious, socio-economic and political lines, and work in partnership towards the common good of Mindanao. As the overall coordinator for inter-regional development, MinDA will sustain its unwavering commitment in consolidating the islands socio-economic development necessary to achieve a longterm peace and security in Mindanao. Together, let us build on the gains of peace and development in the past years and look forward to a peaceful and more progressive island-region in the years ahead.
We recognize and appreciate the value of this Plan for Mindanao, as it embodies the priorities for the island-region and aims not only for enhanced trade and economic activities, greater mobility of people, goods and services within and across national boundaries, but also for the promotion of a true and sustainable peace among Mindanawons. We will continue to champion the cause of Mindanao and bring Mindanaos development issues to national government priorities. We aim for Mindanao to be valued as an island with rich socio-economic potentials necessary for our national development. We, as stakeholders of Mindanao, will intensify efforts in building peace and development in the island-region and enjoin others for a more meaningful participation and stronger influence in shaping the future of Mindanao.
gOv. rODOlFO DEl rOsArIO President, Confederation of Governors, City Mayors, and Municipal Mayors League Presidents of Mindanao (CONFED) EDWIN B. cAPIlI, cPA Vice President for Mindanao Philippine Chamber of Commerce and Industry PrOF. rIcArDO DE uNgrIA Chair, Mindanao Studies Consortium Foundation Inc.
TIMuAY sANTOs uNsAD Commissioner, Central Mindanao Ethnographic Region National Commission on Indigenous Peoples
EXEcuTIvE suMMArY
In the formulation of Mindanao 2020, the following guiding principles were adhered to:
Introduction
Mindanao must change. This is an imperative aspired for by every well-meaning citizen of Mindanao.1 The pockmarked and turbulent history of Mindanao that is marred by division, dashed hopes, fear and frustration must give way to a future marked by unity, optimism, pride and contentment. This is a future that will not come to Mindanao from without, but one that Mindanawons must work together to secure for themselves under an empowering national governance environment.
This need for a better future for Mindanao and its people is the impetus for the formulation of the Peace and Development Framework Plan for Mindanao, timeframe 2011-2030 (Mindanao 2020), which was spearheaded by the Mindanao Development Authority (MinDA). The process was designed and undertaken in a highly participatory process, consisting of countless forums, workshops, focus group discussions, interviews, surveys and consult of writings in various forms; to forge ownership, hence strengthen support and commitment to plan implementation. Mindanao 2020 covers the next 20 years up to the year 2030. The name connotes a clear vision for the future, one that is not difficult for Mindanawons to define in the context of their long history of peculiar difficulties and challenges. Mindanao 2020 is, at the outset, envisioned to provide a holistic and multi-dimensional framework, with greater emphasis than heretofore given to Mindanao history, culture and social development. As a plan for both peace and development, it aims to integrate the work from a wider range of disciplines than previously undertaken, and by a wider range of social actors. As a framework plan, Mindanao 2020 is not intended to be a detailed blueprint, but a guide that puts in coherent form the aspirations and imperatives expressed and espoused by Mindanawons regardless of ethno-cultural, sectoral and socioeconomic backgrounds; sets general directions; defines broad strategies; and identifies a number of key concrete initiatives for the short, medium and long term, without any claims for comprehensiveness or exhaustiveness. As such, it will serve as basis for more detailed plans and budgets of shorter duration within its 20-year time frame. It will also help guide more geographically specific regional or local plans to ensure consistency and coherence within a Mindanao-wide perspective. Notwithstanding its intent to be a broad long-term framework, it also captures, out of respect for the participatory process undertaken, a number of specific and shorter-term initiatives that were espoused by Mindanawons in various consultations.
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Holistic and integrative planning, which addresses the social, economic, environmental, cultural, political/ institutional and spiritual dimensions of human welfare as interrelated and mutually reinforcing concerns. Environment and natural resources as the foundation for the peace and development roadmap to the future of Mindanao, implying that these must endure and be judiciously sustained into the future. Consideration for the larger national, regional and global context, i.e. planning with full consideration of the dynamic changes in the national and international landscapes. Subsidiarity, asserting that units of governance closest to the people must be the primary determinants of actions and interventions to address problems and issues that begin in communities. Pluralism and cultural diversity as a strength that can be harnessed through appropriate attitudes and motivation.
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Paramount importance of good governance in effectively addressing injustice and poverty, and in promoting sustainable development. Participation of women and youth as essential elements for the success of various peace and development interventions. Affirmative action and a preferential option for Mindanao to redress traditional injustices and restore conflict-damaged facilities and institutions. Sensitivity to the various dimensions of conflict in addressing traditional challenges.
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10. Wide ownership secured through a participatory plan formulation process, critical to gaining wide support towards its successful implementation.
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1 Mindanawon is the term used in this document to refer to the citizens and inhabitants of Mindanao. This has been observed to be a widely-accepted version of the word that others have spelled as Mindanaoans or Mindanaons.
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INJUSTICE
Land and Natural Resources Dispossession Extreme Poverty
Clan War
centralized
Autonomy
Ineffective/Imposed Institutions of Governance, Law Enforcement and Service Delivery Competition for Scarce Resources and Opportunities
2 World Bank (2005), Joint Needs Assessment for Reconstruction and Development of Conflict-Affected Areas in Mindanao, World Bank Manila Office.
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Excessive fishing activity beyond sustainable catch levels, leading to a depletion of fishing ground and drastically reduced fish catch; Manufacturing activities built on extractive industries and/or groundwater use without proper consideration of resource carrying capacities or groundwater recharge rates; and
In light of the above, the following considerations and approaches should characterize Mindanaos journey into the next 20 years: 1. Agriculture and agriculture-based industries will continue to be the most prominent driver of the Mindanao economy well into the future, for inherent reasons. The optimum balance between large plantation agriculture and smallholder farming needs to be sought, for reasons of both social inclusiveness and environmental sustainability. There must be stronger effort to move deliberately toward nontraditional high value crops, with corresponding greater value-adding through processing, as required by their highly perishable nature. At the same time, Mindanao will inevitably be looked upon for production of the traditional staples of rice and corn, given its superior agro-climatic conditions. Further research must increasingly target sustainability concerns as an explicit objective (e.g., more efficient use of water), apart from increasing yields. Organic farming and Halal food production will be an expanding component of Mindanaos farm sector, given its natural suitability for these specialty niche segments of the market. As these are inherently associated with sustainable production practices, their expansion will also be in keeping with the imperative of planning Mindanaos future around an increasingly fragile environment. The forestry industry can no longer rely on logging of old growth forests, which are close to depletion in Mindanao. Forest products must henceforth be derived from sustainable forestry based on well-managed commercial tree farming. Such reforestation can present substantial employment and livelihood opportunities for communities, especially if mechanisms for payments for ecological services (PES) are expanded. Coastal and marine fisheries will have to be pursued in more carefully measured steps, to avoid the further depletion of fishery resources that has already impacted on the lives of millions of Mindanawons. Mariculture will figure more prominently in Mindanaos fisheries sector, particularly as efforts to rejuvenate marine fisheries via fishing moratoriums will reduce production from that source in the short to medium term. Mining is in Mindanao to stay; there is no room for extreme positions on this. A number of large mining projects are just starting or are in the pipeline, and it is widely agreed that the key imperative is to ensure responsible mining operations, whether by large, medium or small firms. Defining clear parameters for responsible mining is an immediate imperative. There is also need to pursue greater
the tangible and intangible natural endowments of Mindanao, i.e. its human and natural wealth. Mindanaos human and ENR base has faced serious challenges over decades of resource-using economic activities that had brought substantial gains to a relatively narrow segment of the population. While certain business interests prospered, the wider majority of Mindanawons were left behind, evidenced by high levels of poverty that are among the worst in the entire country. At the same time, the welfare of future generations of Mindanawons had also been compromised in the course of reaping present gains from extracting wealth out of a rich but fragile environment. The economy-environment tradeoff has been manifested in several common economic resource-use patterns that typify development at the cost of environmental degradation, deterioration and destruction, to wit: Construction of river dams for hydroelectric power generation that led to massive disruptions in the natural ecology of river systems; submerged human settlements in affected areas; and complicated the downstream problems associated with logging and deforestation (i.e., siltation of dams leads to significant reduction in power generation capacity of hydroelectric power plants); Unsustainable agriculture practices (e.g. slash-andburn) relied upon by upland populations for subsistence, that further exacerbated forest destruction; Mining activities without requisite environmental safeguards, leading to release of large amounts of toxic chemicals and mine and mill wastes into the environment, and to soil erosion, degraded lands and landslides; 5.
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Source of basic data: NSCB 3 The nationwide average poverty incidence of 33 percent is for 2006. The methodology for calculating poverty incidence has been changed in 2009; thus the 2009 figures subsequently cited are not comparable to this.
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Mindanaos economy, which contributes 18% to the national economic output, has kept pace with growth in the rest of the country, even exceeding the latter in 2009 (Figure 5). Agriculture has traditionally been the dominant sector, where its comparative advantage comes from favorable agro-climatic conditions, fertile soils, even tropical climate largely insulated from typhoons, rich biodiversity, and extensive river systems. There has been little industrial development through the decades, mainly driven by manufacturing, dominated by food manufacturing (agricultural processing and fish canning). The services sector has grown rapidly in recent years, absorbing a larger portion of the Mindanao labor force evidenced by an increased employment share from 33.1% in 1994 to 42.3% in 2006. There remains wide scope for further and faster growth in the Mindanao economy, particularly from the following: Mindanao has consistently been a net exporting economy, with export earnings, mostly from agribased exports, reaching US$2.19 billion in 2009. It has had a long tradition of export orientation, possesses strong market shares in key products, and is a world player in the agricultural export markets for products such as coconut, rubber, pineapple, and banana, among others. Its prospects for further expansion of various export products remain wide. Tourism has great potential in Mindanao given its rich and varied array of tourist attractions for various interests, including history and culture, natural beauty and adventure.
The huge and growing Islamic market in Asia and the Middle East provides opportunities for Halal industries, especially for producers in Muslim Mindanao. The same trend raises prospects for wider opportunities in Islamic finance. The potentials for ICT-based industries have been enhanced with the installation of the necessary information infrastructure in recent years; still, there remains much scope for improvement. More public and private investments are being programmed in support of the requirements of the business process outsourcing (BPO) industry, which promise to give Mindanao a stronger role therein. Mining is seen to have strong growth potential, given abundant mineral resources in Mindanao. There is strong interest in Mindanao from foreign investors especially in mining, but due care must be taken to ensure that (1) social and environmental responsibility is the norm among all mining enterprises, (2) the state obtains its due share in the value of the natural resource, and (3) there is sufficient domestic valueadding to the benefits from mining development.
The prominence of plantation enclaves and the historical lack of road interconnections among the regions had contributed to a fragmented development in Mindanao, leading to extremes of economic performance and very wide disparities. In 2008, Northern Mindanao (Region X) was the fastest growing region in the country and the biggest regional economy in Mindanao. (Table 1). At the other extreme, ARMM had the second slowest growth nationwide and the slowest in Mindanao; it also contributed the least to the Mindanao economy.
grabbing, family feuds, proliferation of private armies, hunger, environmental degradation, human rights violations, and displacement due to disasters. The uneven relations of Muslim Filipinos with the State, and the lack of harmony among the various ethno-linguistic groups in the island, especially between Muslims and Christians, are linked to high poverty levels and inequality in the ARMM. Mindanaos social fabric is impaired by feelings of offense, hurt and consequent mistrust that have persisted and grown through time among various groups. Also palpable is a common lack of trust for political leaders, certain government agencies, and other institutions, bred by many years of perceived government insincerity towards Mindanao. The mistrust for leaders is manifested in recurring calls for greater sincerity and public accountability not only on the part of the government but also on the Moro Islamic Liberation Front and its leaders. Lack of cultural cohesiveness, marked by cultural insensitivity and ethno-centrism has been seen as a formidable obstacle to efforts to uplift human welfare and security in the island group. Lumads commonly lament being left out of discussions, negotiations and agreements, and initiatives for Mindanao. For the Lumads in general, their concept of peace is equated with food adequacy, cohesive family and clan relations, and selfgovernance all anchored on their right for self-determination and land ownership. Consultations with Lumads often lead to
assertions that the National Commission on Indigenous Peoples (NCIP) needs to improve its capacity in attending to their ancestral domain claims. Notwithstanding the above challenges, consultations consistently indicate that Mindanawons as communities and individuals are eager to take part in peace and development initiatives. Indigenous communities have strengthened their own mechanisms for providing basic services to their populace. Artists and musicians dedicate their art to peace; business groups have invested in conflict affected areas; academics direct more relevant research toward Mindanao challenges; parents resolve to teach their children respect for other groups; along with many other demonstrations of goodwill. All these reflect a continuing hope that the common aspiration of peace and general wellbeing is possible in Mindanao in the foreseeable future.
Figure 5 Gross Regional Domestic Product (GRDP) Growth Rate, Mindanao vs. Philippines, 1995-2009
Mindanao Philippines
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table 1 Gross Regional Domestic Product (GRDP) in Million Pesos at Constant Prices, Mindanao Regions, Year 2008-2009 rEgION IX X XI XII Caraga ARMM
Source of raw data: NSCB
share in Mindanao Total (%) 14.65 28.08 25.84 19.39 7.27 4.76
The most crucial impediments to attaining this goal are well known, but are also very difficult to overcome. These are the following: A generally negative peace and order image for most of Mindanao; Remaining wide gaps in infrastructure in many places, notwithstanding the progress made in the last 15 years, with energy now a binding constraint; Weak or lopsided value chains that effectively lead to the exclusion of certain areas or sectors, higher costs, inequitable benefits and concentrated market power; Inhospitable local political and business climate, particularly where the local economy is dominated and controlled by powerful political leaders; Low levels of productivity due to poor access to inputs, weak infrastructure, lack of farm credit, environmental degradation, weak technology support; Unresponsive government programs due to excessively top-down governance while LGUs are ill-equipped to address persistent development challenges.
As indicated above, high levels of poverty, income inequality and wide disparities persist in Mindanao. The pace of poverty reduction has been slow, and as in the rest of the country, poverty incidence has actually risen since 2003, while income distribution has not improved in the face of high economic growth. Meanwhile, environmental degradation has continued unabated, and environmental disasters are occurring with alarmingly increasing
frequency. The basic challenge, then, is to stimulate broadbased economic activity that would have wide benefits across the geographical, social and cultural divides prevalent in Mindanao, while avoiding irreparable damage to the environment. Given Mindanaos peculiar history, context and needs, much higher levels of investment are needed to stimulate not just more economic growth, but to attain quality growth that is both inclusive and sustainable.
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President Benigno Simeon Aquino III speaks before the Mindanao stakeholders during the launching of the Mindanao 2020 Peace and Development Framework Plan (2011-2030) in Malacaang on 30 November 2010.
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Enabling conditions
1. Infrastructure Mindanao has achieved much in infrastructure development, but remains deficient relative to actual needs for various reasons that include the following: Lack of coherent plans (e.g., integrated roads, bridges and logistics; water resource management, etc.); Inadequate government financial resources for infra structure development and maintenance; Underinvestment by the private sector, due to a weak policy environment for implementation of development projects under public-private partnerships; Criminality such as pilferage and vandalism of service infrastructures, and peace and order problems in some parts of Mindanao.
2. Knowledge Support Science & technology and research & development are critical drivers of growth and development, and yet receive very little attention especially in Mindanao. Mindanao 2020 thus seeks to address the following in order to attain its goals and objectives: indigenous power sources to minimize foreign exchange and environmental costs. Meanwhile, there is strong need to manage electricity consumption growth and address substantial losses due to inefficiencies (system loss), pilferage, and wasteful use. Large portions of national roads (34.8%) and barangay roads (95%) remain unpaved, while 39.2% of paved roads are in poor condition. There is wide clamor for a circumferential railway system, whose economic feasibility is under question Dearth of basic research and weak adaptation and transfer of advanced technologies required by the production sector, tracing to lack of financial, physical and human resources; inadequate and unresponsive research agendas; restrictive bureaucratic rules and regulations that impair the responsiveness of the research system, and constrain R&D partnerships with the private sector and knowledge generation in general. Inability of higher education institutions to produce enough scientists, and their tendency towards courses that cater to needs of other countries (e.g., nurses and seamen). On the other hand, many have focused on social and political sciences, which may be of value in clarifying and addressing the complex social and political issues in Mindanao, but often at the expense of science and technology.
Source: DOTC
Major challenges and opportunities facing infrastructure development in Mindanao include the following: A serious power shortage persists in Mindanao, with little relief anticipated in the short term, but requiring at least 1,000MW of new capacity by 2020 and still another 1,500MW by 2030. The outlook for cheap hydroelectric power is compromised by siltation of river systems and dams tracing to deforestation, compounded by climate change impacts. The share of fossil fuels in the energy mix is thus rising, contrary to the desired direction toward clean, renewable and
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Mindanawons of all cultural or socio-economic backgrounds have attained a sustainably uplifted quality of life through their collective achievement of a peaceful, developed, autonomous and integrated Mindanao that is the vanguard for the countrys sustainable development.
basket in the country and the Asia-Pacific region. Its hallmarks shall be: A world-class infrastructure system; and Responsible and sustainable management of Mindanaos natural and cultural resources.
Table 2 Mindanaos Share of Total Government Budget in Key Sectors and in GDP, 1995-2007 sector/Year Economic Socialb Infrastructure
c a
4. A participatory and culture-sensitive Mindanao governance and political framework that asserts self reliance and self-determination, marked by: Stable , self-reliant, responsive and responsible Local Government Units (LGUs); coordination and monitoring Effective mechanisms at the Mindanao-wide, regional and inter/ intra-provincial levels; A responsible and empowering central government that allows local governments and communities to direct development directions and initiatives; Indigenous peoples being able to exercise selfdetermination in managing and governing their respective ancestral domains; and Wide respect for the rule of law and human rights.
Source of Basic Data: General Appropriations Act (GAA) comprises budget for DAR, DA, DTI, and DOT comprises budget for DepEd, CHED, SUCs, DOH, DSWD, and DOLE comprises budget for DPWH and DOTC
3. A unified, dynamic and sustainable Mindanao economy that is technology enabled, characterized by synergy and complementation among its various economic centers, and true to its appellation as food
5. Active and synergistic international economic, cultural and political linkages, with ASEAN and Asian neighbors, the Middle East, and the rest of the world.
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Overall Targets
By 2016,
1. Peace agreements have been completed and signed between the government and the MILF and NDF respectively. Income poverty incidence is down to 30 percent of the Mindanao population. Average life expectancy in Mindanao has improved to 67 years, and elementary and high school enrollment and completion rates have improved by 50 percent over their 2010 levels. Forest cover in Mindanao has been restored to at least 30 percent of land area. The Mindanao economy is growing at an average annual real GDP growth rate of 7-8 percent, average annual income of Mindanawons.5 At least 80 percent of Mindanao LGUs have up-to-date comprehensive development plans (CDPs) and comprehensive land use plans (CLUPs) that incorporate climate change adaptation measures; and Mindanao LGUs have at least 17 percent of their budgets funded by locally-generated revenues. Working alliances or formal collaborative mechanisms among municipalities are present in at least 50 percent of Mindanao provinces. At least 90 percent of national roads in Mindanao are paved and in good condition, and water-based (river, lake and coastal) transport services are in more active use for transport within Mindanao. LGUs have made deliberate moves to promote distinctive Mindanao art and culture in the design and landscape of buildings, houses and various structures and facilities.
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GDP per capita exceeds P16,000 in constant 2009 prices, and unemployment rate is no more than 3 percent.
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By 2020,
1. A consolidated political settlement has been attained that is consistent across the different agreements reached with the MNLF, MILF and NDF. Complete disarmament and reintegration of all combatant forces has been achieved, and all former conflict areas have been completely rehabilitated. Income poverty is down to 25 percent of the Mindanao population. Average life expectancy in Mindanao has improved to 69 years, and elementary and high school enrollment and completion rates have improved by 75 percent over their 2010 levels. Forest cover in Mindanao has increased to at least 40 percent of land area. The Mindanao economy is growing at an average annual real GDP growth rate of 8-10 percent, average annual income (GDP per capita) of Mindanawons exceeds P22,000 in constant 2009 prices, and unemployment is no more than 2 percent. 9. 7. All (100 percent) Mindanao LGUs have up-to-date comprehensive development plans (CDPs) and comprehensive land use plans (CLUPs) that incorporate climate change adaptation measures; and Mindanao LGUs have at least 34 percent of their budgets funded by locally-generated revenues. Working alliances or formal collaborative mechanisms among municipalities are present in at least 75 percent of Mindanao provinces. All (100 percent) national roads in Mindanao are paved and in good condition, limited rail transport services are operational; and river, lake and coastal transport services continue to increase all over Mindanao.
By 2030,
1. A general atmosphere and culture of peace is taken for granted in every part of Mindanao, where cultural pluralism is a widely accepted reality that enriches rather than divides society. Income poverty is down to 15 percent of the Mindanao population. Average life expectancy in Mindanao has improved to 72 years, elementary and high school enrollment rates are at 100 percent, with 90-95 percent completion rates. Forest cover in Mindanao has stabilized at no less than 40 percent of land area. The Mindanao economy is growing at an average annual real GDP growth rate of 8-10 percent, average annual GDP per capita exceeds P50,000 in constant 2009 prices, and full employment prevails in Mindanao. 6. All Mindanao LGUs have up-to-date comprehensive development plans (CDPs) and comprehensive land use plans (CLUPs) and are considered climate changeresilient; and Mindanao LGUs have at least 66 percent of their budgets funded by locally-generated revenues. Working alliances or formal collaborative mechanisms among municipalities are present and common in all Mindanao provinces, with the majority of Mindanao municipalities being part of such an alliance. All national and provincial roads in Mindanao are paved and in good condition, rail transport services linking several provinces are in active use, and waterbased transport services are a common feature of an integrated multi-modal Mindanao transport system. All places in Mindanao possess a distinctive Mindanao ambience, manifested in landscapes and architectural designs of buildings, houses and public structures and facilities.
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10. Most places in Mindanao possess a distinctive Mindanao ambience, manifested landscapes and architectural designs of buildings, houses and public structures and facilities.
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harness public-private partnerships (PPPs) in the provision of social services: Develop new and innovative modalities for PPP, particularly in the provision of health, education and other social services and facilities. It is crucial to provide a strong enabling policy environment for fostering and facilitating PPPs of various forms. rely on community-led initiatives: Emphasize and maximize community-led approaches to poverty reduction and social upliftment. This will entail scaling up and providing greater budget support to interventions that are based on and led by communities. Assert gender sensitivity: Deliberately promote gender sensitivity and balance in all development and social protection concerns. Womens access to capital and financing facilities, information, technology, technical assistance, and livelihood opportunities needs to be improved. There is also a need to guarantee womens right to protection and security from all forms of gender-based violence. Practice culture sensitivity and multiculturalism: Institutionalize and internalize cultural sensitivity and true multiculturalism in governance, education and development work. Peace education promoting cultural sensitivity and solidarity must be integrated into the formal, non-formal and informal education curriculums. Actively pursue cross-cultural communication, exchange and collaboration, while maintaining and asserting distinctive group identities. Mindanaos beauty and rich and diverse cultures should be asserted through various modes of artistic expression, such as the conscious application of culture in architectural designs of public and private facilities like buildings, lampposts, gateways, etc. harness spiritual leaders: systematically harness the role of spiritual and moral leaders and institutions in promoting human security and social cohesion. Apart from inter-faith dialogue, it is particularly important to organize and sustain an intensive program for intrafaith reflection and renewal. Provide meaningful roles for children and youth: Actively involve children and youth in development initiatives in ways that fully recognize and harness their potential intellectual and creative contributions. This includes supporting and encouraging creative and artistic initiatives among the youth, and expanding current mechanisms for harnessing volunteerism among the youth.
A Mindanao where no one is deprived where people are able to develop their potentials as individuals and as communities; build trust and solidarity across regions and diverse cultural identities; and live and work in full respect of the ecological and spiritual systems of which they are part and draw sustenance from.
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Thrusts
Partnerships and active community empowerment will be the twin thrusts towards human development and social cohesion in Mindanao summed up as Partnerships Enabling Active Community Empowerment (PEACE). This is in recognition that no single entity or group, no matter how powerful and endowed, can effectively undertake the needed tasks for securing Mindanaos desired future. The answer lies in harnessing active partnerships: across sectors and stakeholder groups (especially between the public and private sectors, among donor institutions, between donors and government at various levels, etc.); across cultural, religious and ethnic lines; and among communities and localities (e.g., inter-LGU collaboration at barangay, municipal/city or provincial levels). It is also recognized that communities are the appropriate units of intervention for initiatives directed at uplifting the lives of Mindanawons families, who are in turn the basic units of Mindanao society. Freedom from want and freedom from fear, where everyones well being equally matters the essence of human security with social cohesion are thus best served when initiatives are communitydriven. 6.
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Thrusts
Economic & ecological integration and inclusive wealth creation shall be the twin thrusts toward Mindanaos sustainable economic development. Economic integration implies pursuing Mindanaos development within the broader national, regional and global contexts (external integration), and with stronger attention towards internal integration of the Mindanao economy, in two dimensions: (1) fostering more complementary relationships among Mindanaos economic growth centers, and (2) linking leading growth centers more strongly to depressed lagging areas through their respective complementary roles in the economic value-chain. Ecological integration implies planning Mindanaos sustainable development based on its rich ecosystems, dominated by marine resources, fertile riverbasins and watersheds. It means planning with full cognizance of the carrying capacity of the environment and natural resource base. Economic and ecological integration implies seeing economic development and responsible stewardship of the environment not as incompatible goals, but as mutually reinforcing objectives that lead to sustainable development. One without the other is shortsighted and of limited benefit. It is only when both ends are jointly served that the ultimate goals of development are attained. Inclusive wealth creation recognizes that the key to the upliftment of Mindanawons lives lies beyond mere income generation, but in wealth creation that builds up the natural, human, social, physical and financial capital in the island-region. In the context of wealth creation, inclusiveness implies equal access by men and women; Muslims, Christians and Lumad; and rich and poor from all corners of Mindanao to various opportunities for harnessing the various forms of capital in the island-region.
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A responsive knowledge support system from a strong and well-equipped Mindanao S&T community that (a) undertakes active and relevant R&D generating new knowledge to address the regions peculiar challenges and requirements through innovative and adaptive technologies; and (b) features an active network of centers of excellence from which continuously emerge highly-acclaimed scientists and technologists. Ample financial resources that effectively tap a variety of local and external fund sources, and assert Mindanaos selfreliance both in the sourcing of funds and in the development activities that they support. The financial environment will be marked by: A policy environment conducive to private investments and partnerships with national and local governments; LGUs capable of mobilizing and properly managing financial resources for their development needs; and Mindanawons taking charge of their own destiny by investing in infrastructure development and productive economic activities within Mindanao.
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Promote self-reliance, cooperation and sustainability in infrastructure provision. LGUs must be equipped and capable of providing most of their infrastructure requirements individually or collectively, in a way that is both responsive and forward-looking. Establish an effective M&E system complemented by a mechanism of rewards and sanctions for good and bad performance respectively. A participatory M&E mechanism will particularly help ensure quality and responsiveness of infrastructure projects to actual needs. Promote transparency and wide understanding of infrastructure policies and programs through an effective information and communication system. Where citizens understand the nature and significance of infrastructure initiatives, citizen involvement can more easily be harnessed to ensure faithful and timely provision of infrastructure requirements.
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Strategies that are specific to each infrastructure sub-sector include: Transportation and Logistics System Widen the role of inland, coastal and interisland water-based transport in the Mindanao transport and logistics system. Reform policies and regulations that have rendered the transport and logistics system inefficient and costly (e.g. cabotage law and high import tariffs on steel products), along with industries linked to them. Integrate land, air and water transport systems into a coherent and interactive array of interdependent networks. Upgrade main arterial roads into world-class all-weather highways, and build new ones where necessary (e.g., Mindanaos east and west links). Promote alliances among LGUs and partnerships among government and community in the construction of municipal and barangay roads through the provision of an enabling legal environment and a system of incentives. Prepare a long-term plan for a railway system that is closely coordinated with the other infrastructure plans mentioned above, to complement the proposed inter-modal transportation and logistics superhighway. Prioritize the upgrading, expansion or modernization of existing airports, particularly the community airports located inland, and pursue construction of a state-of-the-art airport in the Mindanao heartland out of one of such existing inland airports. Strengthen implementation of policies on user payments for infrastructure facilities to address inefficiencies in resource mobilization and utilization.
Energy and Power Formulate a Mindanao Power and Energy Development and Sustainability Plan that would set the stage for the long-term reliability of power. Reform energy pricing policies to rectify infirmities that inhibit investments in further energy development in Mindanao. Deliberately address losses in power generation, transmission and distribution systems with clear targets for reduction through time. Strengthen mechanisms for attracting private power investments and public participation. Further diversify the energy mix by expanding the share of renewable and indigenous power. Prioritize the building of small hydroelectric plants over large ones in order to maximize the use of hydropower without adversely compromising environmental integrity. Prioritize the development of renewable energy facilities by providing dedicated funds for the conduct of exploratory and feasibility studies. Foster a competitive electricity market by laying the groundwork for establishment of the Mindanao Wholesale Electricity Spot Market by 2014. Undertake a comprehensive strengthening of Rural Electric Cooperatives. Strengthen and sustain an information and education campaign on energy conservation and energy policies and programs.
Information and Communications Technology Support Formulate a coherent long-term ICT plan for Mindanao. Develop a coherent information infrastructure program. Establish an island-wide multi-level and multistakeholder information governance structure. Update and rationalize the national policy and regulatory framework. Foster centers of excellence in IT education. Ensure wide access by small producers to ICT tools and the Internet.
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Water Supply, Irrigation and Sanitation Adopt an integrated approach to watershed planning and management. Develop a coherent Mindanao-wide program for establishing, upgrading and maintaining water supply systems and services. Capacitate BAWASAs to be able to upgrade themselves into viable economic enterprises or cooperatives. Adopt and adapt irrigation methods or technologies that are economical and environment-friendly, and consistent with local cultures and contexts of the farmers and irrigable lands served. Provide needed infrastructure for sewerage and sanitation systems. on a sustained mass education Embark program on watershed protection and rehabilitation.
Financing 1. responsibility and Strengthen fiscal decentralization, accountability through improved local revenue generation and expenditure management by LGUs. Address bottlenecks and issues confronting access and utilization of ODA funds in the medium-term, and plan for the eventual downplaying if not phase-out of ODA as a critical source of development financing. Provide LGUs and their communities greater leeway in determining the uses and in managing funds for local programs of national government agencies. Establish a multi-stakeholder monitoring and evaluation mechanism to ensure that funds are optimally utilized and graft and corruption curtailed. Build capacities of LGUs for entrepreneurial governance so that they may manage their offices like a business enterprise that balances and optimizes the triple bottom line comprised of people (social responsibility), profit (economic development) and planet (environmental integrity).
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science & Technology and research & Development 1. Build and sustain a strong Mindanao-focused scientific and R&D community and culture, and improve capabilities for undertaking scientific and empirical researches and analyses that support the regions peculiar development needs. Set up an independent, multi-disciplinary and state-ofthe-art Mindanao Research and Development Center to be professionally run as a corporate entity, to (a) provide evidence-based policy analysis and advice; (b) serve as coordinating entity and clearing house for all Mindanaopertinent knowledge resources; and (c) emerge world-class Mindanao scholars. Establish a Mindanao Knowledge Network as an organic part of the above research center, that will have nodes in various academic or research institutions at national, regional, provincial, municipal levels. Enhance technological support for Mindanao-based industries and to serve overall economic and human development.
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CHAPTER 1
Introduction
Mindanao must change. This is an imperative now accepted by 1 every well-meaning citizen of Mindanao. Its pockmarked and turbulent history marred by division, dashed hopes, fear and frustration must give way to a future marked by unity, optimism, pride and contentment. This is a future that will not come to Mindanao from without, but one that Mindanawons must work together to secure for themselves under an empowering national governance environment. This document seeks to summarize and put in coherent form the aspirations and imperatives expressed and espoused by Mindanawons of various ethnocultural, sectoral and socio-economic backgrounds through the years, in countless forums and workshops, focus group discussions, interviews, surveys and writings of various forms. It seeks to be a blueprint for the future, owned and committed to by the very stakeholders who will make it happen and who will reap the benefits of its faithful implementation. Mindanao, for the most part, has beautiful, peaceful and prosperous communities having rich cultural heritage; with lands and waters blessed with abundant natural resources; teeming with a full range of resource-based economic activities brought about by vast plantations and pioneering entrepreneurship. But it is also a place known for its extreme poverty, stark inequalities, wanton natural resource destruction and depletion, and violent conflicts. The contradictions of Mindanao are so blatant, and the possibilities for reconciling these extremes so elusive, that any initiative toward yet another round of analysis and planning is burdened by a history of very mixed results. It was against this backdrop that the Mindanao Economic Development Council (MEDCo), now the Mindanao Development 2 Authority (MinDA), spearheaded in the mid-1990s the formulation of the Mindanao 2000 Development Framework Plan encompassing a 15-year period leading into the first decade of the 21st century. In its assessment of the Plans implementation undertaken towards the end of its period of coverage, MEDCo found that most of the Plans targets, goals and objectives remained unmet, even as it noted significant progress in a number of areas, including in infrastructure and trade expansion. The experience with Mindanao 2000 yielded lessons that call for changes in the approach to planning for Mindanaos future. Thus, this successor plan the Mindanao 2020 Peace and Development Framework Plan consciously seeks to be more holistic and multi-dimensional, and trains its focus well beyond economic or infrastructure development which includes history and culture, peace and security, governance and institutions, human development and social cohesion as equally important dimensions in the sustainable development of Mindanao. Mindanao 2020, notwithstanding its name, is a framework plan that covers the next 20 years of Mindanaos future, or up to the year 2030. The name connotes a clear vision for the future, something that is not difficult for Mindanawons to define in the context of their long history of peculiar difficulties and challenges. As a framework plan, it is not intended to be a detailed blueprint, but a guide that sets general directions, defines broad strategies, and identifies a number of key concrete initiatives for the short, medium and long term, without any claims for comprehensiveness or exhaustiveness. As such, it will serve as basis for more detailed plans and budgets of shorter duration within its 20-year time frame. It will also help guide more geographically specific regional or local plans to ensure consistency and coherence within a Mindanao-wide perspective. Despite its intent to be just a long-term framework, Mindanao 2020 still captured some specific and shorter-term initiatives that were proposed by Mindanawons as a show of respect to the participatory process. It also tried to be internally integrated and cohesive thus cross-cutting strategies appear in more than one chapter.
1 Henceforth, Mindanawon will be the term used in this document to refer to the citizens and inhabitants of Mindanao. This has been observed to be a widelyaccepted version of the word that others have spelled as Mindanaoans or Mindanaons. 2 MEDCo was upgraded to the MinDA by Republic Act 9996 enacted on February 17, 2010.
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Figure 1-1. The Mindanao Problem term activities, long term planning, funding and implementation between the central government and the ARMM spanning a period of at least 50 years. This is aimed at reducing dependence on both the central government and the foreign donors, thereby building up self-reliance.
INJUSTICE
Extreme Poverty
Clan War
Ineffective/Imposed Institutions of Governance, Law Enforcement and Service Delivery Competition for Scarce Resources and Opportunities
Source: World Bank (2005), Joint Needs Assessment for Reconstruction and Development of Conflict-Affected Areas in Mindanao, World Bank Manila Office.
Outcomes
Overall, Mindanao fared reasonably well in the last 15 years on economic growth and infrastructure development. Recent performance suggests that its potential for economic development is high, especially if given a proper environment for high and sustained growth. Through the years, Mindanao has gradually become an active player in the global market, buoyed by the competitiveness of its agricultural products. Growth in the production of goods and services, measured as gross regional domestic product (GRDP), fluctuated widely during the 15-year plan period and grew at an average annual rate of 3.9 percent. The target growth rate of 7% was achieved in 2007, suggesting that the target is achievable given the right conditions. The average annual income of PhP11,213 in 2007 was well below the Mindanao 2000 target of PhP20,028. Mindanaos economic structure moved in the direction of a more balanced economy, but fell far short of target. The share of agriculture decreased five percentage points from 41% to 36% (instead of the targeted 11 percentage points), while the share of the industry sector increased three percentage points from 25% to 28% (instead of the targeted 13 percentage points). Employment level as of 2007 was 8.12 million, equivalent to a 96% employment rate, thereby exceeding the Mindanao 2000 target employment rate of 95%. Agriculture and agri-industry were identified as leading growth sectors in Mindanao 2000. There remains much scope for expanding agricultural production and productivity in Mindanao in both breadth and depth, especially in the face of rapid growth in demand for horticultural products (fruits, vegetables and nuts) in rich countries in Europe and North America, as well as within Asia itself. Mindanao 2000 envisioned that by 2010, the industry and service sectors shall take over the lead roles from agriculture and agri-industry, and will become, henceforth, the prime movers of 5 Mindanaos economy. This goal proved to be overly ambitious and unrealistic under prevailing circumstances, and subsequent developments further militated against it. Experience over the past 15 years indicates that agriculture and services continue, and will probably continue, to be the main drivers of the Mindanao economy. While wider industrialization, especially in non-agri-based industries, remains a worthy goal in the long term, this will entail overcoming various constraints that will continue to prevail in the foreseeable future. Mindanao 2000 sought the physical integration of the Mindanao economy through infrastructure development, including land, sea and air transport infrastructure that would link
Mindanao 2000 also introduced a spatial planning approach through identification of area development zones (ADZs), and economic growth clusters (EGCs). The ADZ was defined as the basic spatial unit for planning. An ADZ is composed of spatially contiguous urban and rural centers that display strong economic and socio-cultural ties. An EGC was defined as a consolidation of ADZs with economic and socio-cultural commonalities. The Mindanao 2000 Framework Plan saw the EGC as the mechanism to ensure economies of scale in production and establish a critical mass for global marketing.
3 Adriano, Fermin and Adriano, Lourdes. Peace and Reconstruction Imperatives for Mindanaos Enhanced Development (PRIMED): A Suggested Public Sector Action Agenda for 2001-2004, Working Document, 2001 (unpublished). 4 World Bank (2005), Joint Needs Assessment for Reconstruction and Development of Conflict-Affected Areas in Mindanao, World Bank Manila Office.
5 Mindanao 2000 Development Framework Plan: A Renewed Industry and Service Sector, page 8.
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production areas to domestic and international markets. While major headway was made in transport and communications infrastructure, Mindanaos infrastructure development continues to lag behind that in the rest of the country, and more so relative to its Asian neighbors. Mindanaos modest gains in economic development did not appear to translate into a significant reduction in poverty and gains in human development outcomes. Poverty incidence fell to 40.3% in 2007, but still far from the Mindanao 2000 target of 15%. Economic growth and the demands of the rapidly growing Mindanao populace have taken a heavy toll on the environment. Population pressure, poverty and paucity of livelihood opportunities, dearth of values and the open access nature of most biological resources all contributed to the overexploitation and non-sustainable use of the countrys bio-diversity. Mindanao 2000 recognized the imperative of mobilizing partnerships among the community, local governments and the private sector in preserving and protecting the environment. While some headway was made in this regard, there remains much scope for expansion of community-driven approaches to environment and natural resources management in the years ahead. Mindanao 2000 saw better governance and appropriate institutional reforms as primary keys for the achievement of economic development in Mindanao, and took the economic formula approach for good governance. The primary instrument for this was the creation of a Mindanao-wide body that would have the resources and authority to pursue strategic development projects and to coordinate with local initiatives and programs. The creation of the Mindanao Economic Development Council (MEDCo) as a coordinating body thus sought to address the gap. MEDCo (now MinDA) was envisaged to be representative, consultative, and participatory, and open to evolve and adopt support systems that can sustain inter-regional coordination.
the children of Mindanao. The 1991 Local Government Code had put local governments in the forefront of health service delivery, but LGUs have yet to achieve their full potentials to provide an effective health services system. MDgs and beyond. More focused efforts are needed towards meeting the targets of the Millennium Development Goals, particularly on improving maternal health, mitigating HIV/ AIDs, malaria and other diseases, reducing child mortality, and ensuring full access to safe water and basic sanitation for all regions in Mindanao. This requires deliberate partnerships among government, civil society and the private sector to be most satisfactorily and sustainably achieved. Environmental sustainability. The successor plan must take a more deliberate approach of pursuing an environmentally sustainable economic development path, especially with much of Mindanaos wealth being in the form of natural wealth. Agricultural competitiveness toward wider and broader benefits. Further investments are needed in more and improved infrastructure, knowledge support, and improved access to capital especially by small agricultural and agribusiness producers. Food security. While food security policy was not prominently addressed by Mindanao 2000, the successor plan would do well to take a more explicit approach to food security, especially in asserting the key role of local governments in this pursuit. Tourism development. Much work remains needed towards (i) securing lasting peace in troubled areas, (ii) overcoming the misplaced negative image of Mindanao to the outside world, and (iii) providing necessary tourism amenities and conveyance mechanisms. Mining development. Efforts toward finding a widely acceptable approach to mining development need to be pursued with open-mindedness and sincerity among all stakeholder groups concerned. Good governance must be the starting point for any meaningful progress to be made towards the desired win-win approach and outcomes. Wider industrialization in the longer term. Significant headway towards further industrialization in Mindanao can be achieved within the next twenty years, but forward-looking initiatives need to be undertaken now to pave the way for achieving this long-term goal. sub-regional cooperation. The momentum for cooperation within the BIMP-EAGA framework needs to be restored, and requires collaborative partnerships within the member countries (i.e. between government and private sector) and across them. Infrastructure gaps. The major gaps and unfinished agenda for infrastructure development in Mindanao include providing for adequate and inexpensive power, world-class ICT infrastructure, and full transport integration.
Effective and widely acceptable Mindanao governance. Long-standing governance weaknesses need to be addressed, including weak planning and implementation capacities at the local government level, and graft and corruption at all levels. There is also general clamor for achieving satisfactory autonomy and self-reliance in Mindanao governance. Finally, it is crucial to achieve an effective Mindanao-wide governance mechanism that will orchestrate its march into the future.
Pluralism and cultural diversity is a key attribute of Mindanao society. Mindanaos wealth is most clearly manifested in its natural, human and social capital, with the last being particularly enriched by the cultural diversity found in the island groups. Divisions along cultural, religious and political lines are not inevitable and can be overcome with the proper attitude and motivation among all concerned. good governance is paramount in effectively addressing injustice and poverty, and in promoting sustainable development. Decades of experience within Mindanao and elsewhere have clearly pointed to the strong inhibiting role of weak governance to even the best-designed plans and programs. Women and youth are critical to shaping Mindanaos future. It is equally important to assert the crucial roles they can play towards the success of various peace and development interventions, and how the same would in turn impact on them. Affirmative action and a preferential option for Mindanao are justified and imperative in the short- to mediumterm, to redress traditional injustices and restore conflictdamaged facilities and institutions. For instance, Mindanao needs to be given more than equitable access to development resources and decision-making mechanisms in government and disproportionate share of both attention and resources for reconstruction of conflict-affected areas. conflict sensitivity is crucial in addressing Mindanaos traditional challenges; the numerous conflict lines that exist in Mindanao must be properly recognized and addressed to be effective in attaining lasting peace and development. A definitive approach to a lasting peace in Mindanao must be sensitive to the various dimensions of conflict and injustice, and the solutions required to resolve them. Ownership of the Plan is a key factor, and participation is crucial to securing wide support and faithful and effective implementation. Mindanao 2020, to be successful, must not only be widely known, but more importantly, widely owned. This requires that the Plan embody the aspirations of ordinary Mindanawons from all walks of life and socio-political-cultural backgrounds. This can only be secured through a participatory process for Plan formulation, which the formulation of Mindanao 2020 has deliberately and painstakingly sought to uphold.
guiding Principles
In the context of the continuing challenges discussed above, Mindanao 2020 shall adhere to the following key guiding principles in addressing the challenges that face the island group. Some of these reaffirm principles that also guided Mindanao 2000, its predecessor plan: sustainable peace and development in Mindanao needs to be pursued holistically and integratively. Human welfare, and hence sustainable peace and development, has social, economic, environmental, cultural, political/ institutional and spiritual dimensions. Each of these dimensions needs to be recognized and addressed as interrelated and mutually reinforcing concerns. Peace and development in Mindanao are critically linked to its environment and natural resources. Mindanaos environment and natural resource base is the platform on which Mindanao 2020, as its roadmap to the future, must be built. This implies that this same platform must endure and be judiciously sustained indefinitely into the future. Mindanaos inherent wealth lies in its rich watersheds and river basins, and its marine and coastal resources. As an archipelagic area, Mindanaos future must be planned in a way that avoids inordinate focus on landbased resources and activities, but fully consider its water-based endowments and challenges as well. Mindanaos future directions must be situated within the larger national, regional and global context. Mindanaos future development will not occur in a vacuum, but is transpiring amidst dynamic changes in the national and international landscape, which will both affect and be influenced by what transpires in Mindanao in the next 20 years. subsidiarity is crucial. Top-down planning and decisionmaking has been a particular bane for Mindanao and its peoples, whose futures have traditionally been charted in distant Manila by central government officials. Units of governance closest to the people themselves must be the primary determinants of actions and interventions to address problems and issues that begin in communities. Mindanao 2020 must therefore assert the principle of subsidiarity through appropriate mechanisms for governance decentralization and devolution, and promotion of community-driven approaches to managing local resources and securing peace and development.
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CHAPTER 2
Introduction
Mindanao looks to a future that is shaped by both various external trends transpiring in the international arena, and internal developments within Mindanao itself and in the broader Philippine national context. It is thus inevitable and appropriate that a long-term strategic plan take cognizance of such external and internal trends and scenarios that lie largely beyond the control of the inhabitants of Mindanao. Only as such can Mindanao 2020 be a plan that is in tune with the future, and thus ready for it. Various key global trends of environmental, demographic, economic or geopolitical nature are relevant to Mindanaos future. Of the first, the threats from climate change are clearly the most prominent, and Mindanao must position itself to adequately meet the challenges that will come with these threats. Demographic trends include aging populations in affluent countries, and continued migration of large numbers of Filipinos abroad, also partly conditioned by this aging phenomenon. Economic trends have been influenced by technological change, changing resource availabilities, evolving market preferences, growing regional economic integration, and most recently, longer-term implications of the outcomes and responses to the 2008-2009 global financial crisis and economic downturn. Finally, geopolitical trends are conditioned by the shifting power balance across and within countries, and are closely linked to economic trends (such as the shift of the global economic fulcrum to Asia, especially with the dominance of China and India). These and their implications for Mindanaos strategic directions are considered in turn below. Long-term planning for a complex, highly diverse and often volatile area like Mindanao is far from being straightforward. Under such conditions, traditional planning approaches are either not applicable or not flexible; meaning their plans usually lack flexibility to adjust to new developments, not having been designed to respond to unforeseen risks or disturbances. A crucial element of the Mindanao 2020 formulation process, therefore, was a deliberate exercise to define alternative trajectories that Mindanao could conceivably take within the 20-year period covered by the Plan. To define these alternative trajectories, a two-day scenario-building (SB) workshop brought together about 40 leaders from a broad range of sectors, including education, academe, indigenous peoples, business, military, government, and others.
of greenhouse gas emissions; hence, its primary imperatives regarding climate change have to do with adaptation. The matter is of particular concern for Mindanao, which is considered to be more vulnerable to the threats of climate change relative to other parts of the country. Mindanaos vulnerability to climate change arises from a long coastline and a strong dependence on agriculture and hydropower. Mindanao has the highest risk of temperature rise (Fig. 2-1) and El Nio drought in the country. It is thus imperative for Mindanao to adapt its agriculture to impacts of higher temperatures and their possible impacts such as pestilence and water and power shortages. Physical planning will be particularly influenced by potentially drastic changes in the coastal landscape that would result from a rise in the sea level due to melting snow caps and glaciers, one of the major consequences of global warming and climate change. Simulations of the impacts of various degrees of sea level rise on coastal areas suggest that a substantial amount of historical and existing physical facilities as well as thickly-populated areas could be submerged and rendered useless. Indications of this can be seen from Figures 2-2 to 2-4, illustrating simulations of sea level rise on some major centers of Mindanao and Basilan Island.
Demographic Trends
Aging Populations Abroad The United Nations projects that the number of people aged 60 and over will double from around 600 million in 2000 to 1.2 billion in 2025, and rise further to 2 billion by 2050. Two-thirds of all older people currently live in the developing world; the UN projects this figure to rise to three-quarters by 2025. The coming cohort of senior citizens would be the first generation to age with a relatively high level of health and education. This comes from the improvements in public health and education owing to dramatic technological improvements in general. Public health has been uplifted by advancements in the medical sciences and technologies for disease prevention and control. The level and reach of education has likewise been enhanced by technological advancements in the neurosciences and in information and communication technology. The new cohort of senior citizens will also generally have unprecedented levels of economic security, due to increased incomes from rapid economic growth, and the deliberate attention given to public and private social security schemes especially in advanced societies. Both challenges and opportunities emerge for Mindanao from these global aging trends. The demographic pattern in the Philippines has been different from much of the world, especially neighboring Asian countries, because of a persistently high population growth rate. The result is a population profile where the working population continues to be dominant, thereby providing a large pool of labor seeking employment and livelihood opportunities. Opportunities therefore arise in geriatric products and services, including organic foods, caregiving/hospice centers and retirement estates.
global Megatrends
Environmental Trends: Climate Change
Global warming due to greenhouse emissions and the resultant climate change is probably the most prominent among the megatrends facing the world today. The imperatives consist of mitigation, especially for countries responsible for major amounts of greenhouse gas emissions into the atmosphere; and adaptation, especially for the vulnerable island and archipelagic countries. The Philippines is a relatively insignificant source
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Figure 2-1 Temperature Increase Risk Map Figure 2-2 Effects of Sea Level Rise on Mindanao Coastal Areas
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Figure 2-3 Effects of Sea Level Rise, Northern Mindanao Coastal Areas
Source: http://flood.firetree.net/?ll=6.6864,124.2279&z=9&m=0
Source: http://flood.firetree.net/?ll=6.6864,124.2279&z=9&m=0
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At the same time, the high dependency ratios (i.e., ratio of nonworking to working population) due to growing numbers of retired persons will lead to further tightening of labor markets in advanced economies. This means that both blue- and whitecollar jobs for Filipino workers overseas will remain high and growing in the next 20 years. High demand for expatriate workers overseas is projected to put pressure on domestic labor markets, and it is quite likely that Mindanaos own economic growth prospects may begin to be constrained by such tightening in the labor market in the long term, i.e., beyond the next ten years. It may be noted that even at present, Mindanao enjoys higher employment rates (lower unemployment rates) relative to the rest of the country. Based on this, external demand pressures could impinge on Mindanaos labor markets even sooner than in the rest of the country. The other effect of tightening labor markets abroad is to further raise demand for outsourced services. This suggests that Mindanao will increasingly attract more and more BPO enterprises as well in the years ahead, especially with labor pools for the BPO industry already tightening in Luzon and the Visayas. The challenge for Mindanao, then, is to prepare its human resource pool in a way that responds to the various competing labor demands likely to emerge within the next 20 years, both at home and abroad. The educational system spanning basic to tertiary education must gear itself for this future in a very deliberate way. continued Diaspora An estimated 2,000-3,000 Filipinos leave the country everyday to work overseas. Despite long-standing predictions of a slackening in the exodus of overseas Filipino migrants, there is no indication that the flow will significantly change in the foreseeable future. This is because the combination of push and pull factors that sustain the flow are not likely to diminish for time to come. The push is coming from a rapid population growth rate (which is even faster in Mindanao than in the rest of the country), and an economy unable to keep pace with the job requirements of the growing population. On the other hand, the pull pressure comes from rising labor demands in host economies abroad in the face of declining or slowing growth in working-age populations, further exacerbated by the aging trends as discussed above. Moreover, foreign employers are known to have preferential demand for Filipino workers over other nationalities, for various reasons that include their industriousness and dependability, their caring and responsible attitude, and even superior personal hygiene. This implies that overseas labor migration will present a twobladed challenge for the future of the Mindanao economy. There is the traditional challenge of generating significantly improved employment opportunities through the invigoration of the local economy via increased investment. At the same time, any new major investment decisions will be conditioned by the availability of required human resources. But the competing lure of overseas employment for the potential pool of available workers may
actually present an element of uncertainty for potential investors that could in itself deter the very entry of such investments.
Economic Trends
Rapid advances in technology have conditioned the nature of both the products (goods and services) and the markets in the world economy. Biotechnology and nanotechnology prominently influence the product side, while transport systems and information and communication technology are changing the nature of markets faced by enterprises large and small alike. Biotechnology, particularly genetic engineering, has been touted to revolutionize agriculture and boost productivity to dramatically higher levels. However, this has generated a backlash motivated by concern over food safety and environmental considerations, which has created a special and rapidly growing niche market for organically grown farm products. Mindanaos comparative advantage in agriculture, and its growing capacity in organic agriculture, will be among the strengths that could be harnessed to respond to these technologically-induced economic trends. Meanwhile, changing resource availabilities also condition the supplies and costs of producing both primary and manufactured products. These include the prospect of declining oil resources based on the assertion that the peak of the worlds fixed oil reserves is about to be reached, if not already reached; shifts in availabilities of mineral supplies; depleting fisheries; tightened labor markets due to the demographic changes discussed above, and others. Mindanaos rich natural resource endowments, especially minerals and marine resources (fisheries, offshore oil), will be a prominent factor in responding to changing world market conditions induced by such resource shifts in the world economy. The general trend towards business process outsourcing (BPO) due to high labor costs in advanced economies is also an opportunity that Mindanao has begun to take advantage of. Preferences in world markets are shifting in response to some of the trends mentioned above. As already mentioned, aging populations are spurring rapid growth in demand for geriatric products and services. Demand for organic products is likewise undergoing rapid growth, especially in wealthier markets that now place a premium on natural products. In addition, rapid income growth in the giant economies of China and India is spurring new demands for food, apparel and the whole range of consumer products, and has also created a corresponding highgrowth segment in the international tourism market. Demand for horticultural products (fruits, vegetables, nuts, beverages) has seen rapid growth in developed countries of the West, as well as in Asia itself. Meanwhile, per capita consumption of cereals, including rice, has seen a decline in Asian countries, accompanied by a corresponding rise in per capita consumption of livestock and meat products. Growing Muslim populations in Western countries, the Middle East and in Asia are also rapidly expanding the demand for Halal products, which Mindanao is well positioned to meet. All these market trends would have
centralized
Autonomy
implications on how Mindanao should position itself to meet the demands of changing world and regional market demands. Moves toward stronger regional economic integration, especially in East Asia (within ASEAN, and ASEAN plus China, Japan, and Korea) have been ongoing on both multilateral and bilateral fronts. The broader context of East Asian economic integration, including liberalized trade and investment and financial sector cooperation, present both opportunities and threats for the Mindanao economy. As Muslims comprise a majority in the Southeast Asian region, regional integration increases the opportunity for production activities geared toward Muslim markets, such as Halal industries and Islamic finance. The BIMPEAGA sub-regional initiative promises to be a key instrument and venue for propelling Mindanaos economic growth. Beyond economic integration, Mindanao is also the logical front-liner to the social, cultural and political dimensions of the countrys closer integration within the broader Southeast Asian community, as it best exemplifies the Philippines commonalities with its ASEAN neighbors.
The global financial and economic crisis of 2008-2009 spurred moves to restructure financial markets and the financial sector in global and national contexts. There is also growing sentiment within Asia on the need for rebalancing of the regions economic growth away from dependence on Western export markets, and more towards domestic and regional (i.e. Asian) markets. These trends provide new opportunities for the economic activities that Mindanao is uniquely engaged in, as already discussed above. The positive combination of its rich human and natural resource base, along with emerging opportunities in the regional and global economy, provide good basis to expect that Mindanao will be the frontrunner for the economic growth of the entire Philippine economy in the next 20 years.
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scenario 2 is marked by greater fear but also greater autonomy, with the concomitant dynamics yielding bad local governance. There is diversification of communities, warlordism and an open season on killings, general apathy, negative reportage, and disempowered women. There is a total breakdown of governance systems and structures. Local government is synonymous to dynasties, predicated on greater local autonomy combined with greater fear. Mindanao would be controlled by the highest bidders, and its resources will be ground down. Violence is an instrument for central control to diffuse uncontrolled local fronts. scenario 3 is characterized by greater safety of the population, and greater and wider autonomy. It is marked by harmonized relationships among locals, greater empowerment, and internally driven growth. Mindanao is peaceful and communities feel secure thus there is multi-ethnic cultural harmony and engagement. Community stewardship of natural resources lead to a healthy environment that provides the food and livelihood requirements of the population. Overseas workers are attracted back by the wide opportunities offered by the Mindanao economy. External assistance is incrementally lessened with the rise of local cooperatives as leading investors. Conflict-affected areas are completely rehabilitated. scenario 4 is marked by greater human security, greater decentralization, with the concomitant dynamics fostering holistic planning and a representative government. It is characterized by a rigid and non-pluralistic educational system, externally driven development, and external exploitation of natural resources. Rights of all marginalized sectors are respected. Tradition-based, indigenous political-social structures are successfully integrated with modern systems. National leadership works to strengthen local leadership. There is peace agreement and Mindanao subregions have autonomy. Dynastic arrangements are eroded and clan rivalries diminished. Infrastructure development flourishes resulting in economic dynamism. However, the benefits thereof are not widespread, and income inequities remain distinct.
Full implementation of the Final Peace Agreement would have (or not) been achieved, complemented by a Final Peace Agreement reached with the MILF, and a similar Peace Agreement with the NDF that legalizes the participation of the Communist Party of the Philippines in the political, economic and social realms. The final peace agreements with each group would or would not be consistent and complementary to one another, thereby satisfactorily addressing all key areas of conflict with all groups. Effective mechanisms to mediate in clan and individual based conflicts (rido) would have (or not) been instituted at all levels. Mindanao would have (or not) been fully integrated into the regional (ASEAN) Security and Development framework, specifically the consolidation of the BIMP EAGA growth corridor A new generation of young Bangsamoro and IPs would have (or not) been mainstreamed in the shaping of policies that affect
Mindanao in general, and their respective constituencies in particular. Intensifying climate change impacts would represent more severe pressures on economic and social life, and adequate adaptation measures would or would not have been in place to satisfactorily neutralize these threats. This would either lead to an outcome where livelihoods are adequately protected and sustained or one where a heavy toll is taken on Mindanaos water and biological resources, leading to heightened conflicts over water resources and land areas. The above scenarios all represent realms of possibilities that must be taken into account in planning for Mindanao twenty years hence. As such, they must be consciously considered in the process of formulating strategies that (a) would ensure the realization of the positive scenarios; and (b) prevent the negative ones from transpiring.
Positives
Increased remittances Responsible reportage Internally driven Equal opportunity High technological development Strong commitment Harmony Peace and tolerance Greater local autonomy Tolerance Plural system Fully represented Low donor priority for Philippines Safety Diversified Regeneration Migration
Key Drivers
Negatives
Displacement Negative reportage Externally driven Lack of opportunity Low levels of technology development Growing apathy Conflict More violent expressions Greater centralization Intolerance Mono system Disempowered, invisible High donor priority for Philippines Fear Controlled and unified Depletion
Negative reputation social mobilization Equality IT/technology Youth sector Multi-ethnic relationships culture and identity governance Morals Education Women External powers human security land Natural resources
Alternative Scenarios
The above three key drivers form the main bases for describing key alternative scenarios that could emerge in Mindanaos future. Their combination, taken together in consideration of the other drivers, defines the four general scenarios depicted in Figure 2-5 and described in brief below (see full scenario stories in Annex 2-A). scenario 1 is characterized by greater fear and centralization marked by intolerance and endangered natural environment. Armed conflict resumes due to the permanent stalling of the peace process. Violence spills over other Mindanao areas resulting in a Mindanawon diaspora. Imperial Manila dictates development planning, allocation of resources and war against rebels and terrorists are directed from Manila. Local government is synonymous with warlord reigns. Natural resources are endangered, waterways run dry, potable water is scarce. Similarly, basic requirements like medicine and food are scarce. With depleted natural wealth, poverty is high and there is violent competition for resources.
11 12 13 14 15 16
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CHAPTER 3
Introduction
Mindanao is endowed with rich natural resources, multiple and highly diverse cultures, and strategic location in a complex and rapidly growing region. Its economy has traditionally been based on primary resource-using production activities, dominated by agriculture and agribusiness. While there are pockets of industrial development, these are also mostly based on exploiting primary resources especially forests and minerals, often located within ancestral domains. Large numbers of Mindanawons, especially indigenous peoples (IPs), live in abject poverty and substantially rely on natural resources for subsistence and livelihood. In many instances, they find themselves in a losing competition with large investors for use of their own resources. Mindanawons also suffer the consequences of environmental degradation caused by unsustainable management and use of resources by enterprises introduced and owned by outsiders. This development path is clearly unsustainable due to the social and environmental tensions it creates and exacerbates through time. Against this background, it is prudent and imperative that Mindanao 2020 not only provide due focus on environment and natural resources, but also recognize that Mindanaos future development rests on it. Mindanao 2020 thus prescribes an ecosystem-based approach to planning for the island-regions future development and economic activities. This would translate into interventions that transcend administrative boundaries, i.e., across cities/towns, provinces and regions. Such approach is warranted under environment-stressed circumstances such are now prevailing in Mindanao. Furthermore, it has the added virtue of impelling cross-cultural and cross-border communication and cooperation, so essential to achieving sustainable peace and development in Mindanao. To the extent that differing cultural communities can find unity in the shared stewardship of the
natural resource system that they live in, the divisions traditionally impeding peace and security in Mindanao could be downplayed and possibly erased. Moreover, an ecosystem approach better promotes human security and social cohesion by situating all development initiatives within a holistic framework. The ecosystem-based approach espoused by Mindanao 2020 thus means that its vision of peace and development and the long-term strategies adopted to pursue it must build on the tangible and intangible natural endowments of Mindanao that is, its human and natural wealth with a view to sustaining the benefits that such wealth will bring forth indefinitely into the future. Hence, this chapter proceeds by taking stock of the natural wealth Mindanao is abundantly endowed with; examines how its past and present development have impacted on its environment and natural resource base; and finally, how this same environment and natural resource base should shape the nature of development activities that could best sustain a broadbased upliftment of the lives of Mindanawons far into the future.
Table 3-1. Mindanao Population and Annual Growth Rates, 1995, 2000, and 2007
region Total Population (000) sep 1995 Philippines Region IX Region X i Region XI Region XII ARMM CARAGA TOTAl 68,616 2,568 3,197 3,289 2,847 2,362 1,943 16,206 May 2000 76,507 2,831 3,506 3,676 3,222 2,803 2,095 18,134 Aug 2007 88,567 3,230 3,952 4,160 3,831 4,121 2,293 21,587 Annual growth rate (%) 1995-2000 2.36 2.12 1.99 2.41 2.69 3.73 1.63 1995-2007 2.16 1.94 1.79 1.99 2.52 4.78 1.4 2000-2007 2.04 1.83 1.67 1.72 2.41 5.46 1.25
Sources: Census of Population (1995; 2000; 2007), National Statistics Office Note: Population counts for the provinces do not add up to regional total and include cases like the 150 persons residing in areas disputed by Bukidnon and Misamis Oriental
6 This was the year of the last mid-decade population census taken in the Philippines.
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Maranao (in Lanao), the Maguindanao (former empire province of Cotabato). Tausug (Sulu Archipelago), Sama (Tawi-Tawi), the Yakans (Basilan) and the Iranon (former Sharif Kabungsuan). The Bangsamoro peoples comprised about 3,420,742 or 19.2% of the inhabitants of Mindanao in the 2000 Census (NSO 2000). The divisions and loyalties within the three Liberation Fronts in the ARMM are largely identified with and tied to the three major ethno-linguistic groupings that have shaped the Bangsamoro identities through the centuries. The MNLF is identified with the Tausugs; the MNLF Reformists with the Maranaos; and the MILF with the Maguindanaos. The third group consists of the various ethno-linguistic Settlers, mostly Christian, who began to settle in large numbers in Mindanao around the second decade of the 1900s. This arose from the settlement program begun by the American colonial government and subsequently continued by the national government after the Americans departure. The mostlyChristian settlers presently constitute the majority population of Mindanao. Most Christian-dominated provinces enjoy a relatively higher level of development and functional governance. The 2000 Census placed the Moro population at around 3.6 million or 20% of the Mindanao total, the Lumad population at 1.5 million or 8.2%, and Christians at 13 million or 71.9% of Mindanaos total population (Table 3-3).
famed Tasaday tribe. The regions lowland areas highly depend on water running off the Pantaron, Kalatungan, Balokong and Kidapon Range ridges. Island Ecosystems. Mindanao is dotted with 653 islands and islets. The biggest 20 islands comprising about 9.9 million hectares are listed in Table 3-4. The remaining 634 islets only account for about 12% of Mindanaos total land area. Island ecosystems are highly fragile, hence quite vulnerable to both man-made and natural causes, especially to climate change. They play very important roles in Mindanaos peace and development since some of them are the bedrocks of conflicts on one hand, and production areas of key commodities on the other. Forests and uplands The national forest cover (usually defined generally to include mangroves, plantations and mossy forests, which are found in 7 the upper elevations of ridges) was placed by an ESSC study at 21.7% in 2002. The total forest cover of Mindanao more or less follows the national average of around 21% of its total land area 8 (Table 3-5). Figure 3-1 shows the location and extent of various types of forest cover. Broadleaf open canopy category occupies about 67% or 14,114 square kilometres, around 45% or 6,000 square kilometres of which is in Caraga. Upland areas are estimated at 52,051 square kilometres or about 52% of Mindanaos total area. Only 40% of these areas have forest cover. Mossy or cloud forests can be found in the upper sections of mountains and ridges. These significantly contribute to the forests water absorption, hence are critical to water production. Region X has the largest mossy forests, most of which (89%) are in Bukidnon. Control of the upland ancestral domains has long been a contentious issue. As of mid-2010, NCIP had awarded almost 19,000 square kilometres of land in Mindanao to Indigenous Cultural Communities through 74 Certificates of Ancestral Domain Titles (CADT) and 27 Certificates of Ancestral Land Titles (CALT) (Table 3-6). These CADT and CALT areas cover around 19% of Mindanaos total land area. Region XIII has the most number of approved CADTs while Region XII has the most number of CALTs and also the most number of beneficiaries or right holders. The ecological, economic and security significance of mangroves especially for Mindanaos coastal areas and populations is enormous. ARMM has 43% of the entire mangrove area of Mindanao, mostly in the island provinces. Sulu, Tawi-Tawi, Zamboanga Sibugay, Surigao del Norte, and Surigao del Sur are in the top 10 provinces with extensive mangrove areas. Watersheds Mindanao has 262 watersheds (Figure 3-2 and Table 3-7), with the two largest being the Agusan and Pulangi watersheds. These two watersheds are drained by Mindanaos nine major and 20
9
population reside. Population in all regions has been increasing at an annual average growth rate for Mindanao of 2.4%, a level higher than that of the Philippines. ARMM, with a rapid recorded population growth rate of 5.5%, is responsible for pulling up the Mindanao average beyond the national growth rate. Overall, males outnumbered females by 239,768 or 0.7 percentage point in the 2000 Census (Table 3-2). This trend ran throughout Mindanao except for ARMM where there were 52,551 more females than males. The many and varied peoples and cultures of Mindanao generally fall under three major groupings. The first group is composed of 35 tribes, collectively known as Lumads. Each ethnic tribe has a specific history and language of its own, and particular territory considered as its ancestral domain. The present status of claims over their ancestral domains ranges from a simple claim filed at the National Commission on Indigenous Peoples (NCIP) to actual recognition of their ownership with legal titles called the Certificates of Ancestral Domain Titles (CADTs). The Lumads, who traditionally occupied the mountains of Mindanao, consist of the Manobos (Dulangan, Aromanen and the Mt. Apo group); Teduray in Maguindanao and Sultan Kudarat; the Bagobo, Talaingod and Mandaya in the formerly undivided
province of Davao, the Subanen in the formerly undivided province of Zamboanga, and the Higaunon also known as Bukidnon who inhabit the whole stretch from Agusan to across Misamis Oriental to Bukidnon and Iligan City in Lanao del Norte. It is a common lament that the Lumads have been given little cultural reference or acknowledgement in mainstream society. The smaller tribes or cultures have found the need to integrate with dominant IP groups or cultures in order to participate and benefit from basic services and economic development programs. As integration is normally not consistent with traditional practice among cultural groups, many smaller tribes have become more isolated, with others going deeper into the mountains or forests as lowland settlers advance toward their abodes. Lumads echo the desire to bemasters of their destinyby exercising autonomy in their internal affairs, including governance within their ancestral domain. The basic law that recognizes the rights of the IPs is the Indigenous Peoples Rights Act or IPRA (RA 8371) enacted in 1997. Similarly, ARMM enacted the Muslim Mindanao Autonomy Act 241 known as Tribal Peoples Rights Act. The second group consists of the 13 ethno-linguistic Bangsamoro peoples. There are 4 to 6 dominant groups that also represent the major territorial ethnic identities within the ARMM. They are the
7 Walpole (2010). 8 ESSC excludes plantations in the definition of forests, hence arrived at a figure lower than the government estimate of 25.2%, which includes plantations. 9 A watershed is a discrete geographical area of land from which rainwater can drain as surface runoff, via a specific stream or river system to a common outlet point which may be a dam, irrigation system or municipal/urban water supply point, or where the stream/river discharges into a larger river lake or sea. As a natural formation, a watershed does not recognize political boundaries. In most cases, it covers several barangays, municipalities, and cities. (Working definition by the Forest Management Bureau, Department of Environment and Natural Resources). A river basin is the portion of land drained by a river and its tributaries. It encompasses all the land surface dissected and drained by many streams and creeks that flow downhill into one another, and eventually into one river (Working definition by the North Carolina Office of Environmental Education and Public Affairs).
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Table 3-5. Mindanao Forest Types by Region (In Square Kilometres) Table 3-4. Mindanao Key Island Ecosystems
No 1 2 3 4 5 6 7 8 9 10 Island Mindanao Basilan Jolo Dinagat Tawi-tawi Siargao Samal Camiguin Olutanga Bucas Grande Area (ha) 9,407,475 123,861 85,116 77,691 59,107 43,880 25,212 24,202 19,360 12,585 region(s) IX, X, XI, XII, XIII, ARMM XI,ARMM ARMM XIII ARMM XIII XI X IX XIII No. 11 12 13 14 15 16 17 18 19 20 Island Sibutu Pangutaran Siasi Cagayan Sulu Nonoc Balut Pata Sanga-sanga Simunul Lintian Area (ha) 10,271 9,632 7,702 6,982 5,839 4,881 4,838 4,361 4,209 4,142 region(s) ARMM ARMM ARMM ARMM XIII XI ARMM ARMM ARMM ARMM
Philippines IX X XI XII XIII ARMM Mindanao TOTAL
Source:
rEgION
Broadleaf closed canopy 13,426.8 241 184 574 65 935 437 2,436
Broadleaf open canopy 40,885 1,054 1,841 2,178 2,069 6,005 968 14,114
coniferous
Mossy
Mangrove
Total forest
land area
% forest over land area 21.83 11% 19% 19% 15% 39% 21% 21%
851.5 -
Walpole (2010).
secondary rivers. The Pantaron Mountain Range is at the heart of these most important water sources and influences more than half of the Mindanao mainland if one considers the total area (i.e. 45,200 square kilometres) of all watersheds originating from it. It covers an area of about 12,600 square kilometers or roughly 12.4% of Mindanao. The western slopes of the Central Pantaron where most of the rivers originate are within the province of Bukidnon, thus making it the headwater province. The Pantaron Range is one of the largest remaining forest blocks in the Philippines, a valuable corridor of biodiversity. The Pulangi River Basin covers 20,508 sq.km. and influences nine provinces as Pulangi River traverses about 373 kilometers from Bukidnon to Cotabato City (Figure 3-3). The Upper Pulangi river basin comprises about 44% of the total area of Bukidnon province. The Pulangi river basin is extremely important ecologically because of its biodiversity and the high dependence on it of the vast Pulangi agricultural basin and downstream provinces. It also hosts a major dam (Maramag) that produces hydroelectric power and supplies water for irrigation. Pulangi River is an important transportation channel, used mainly in transporting agricultural products and people, and source of livelihood. It is also a sacred place for a number of tribes, who see it as a gift from Magbabaya (the Supreme Being). The Agusan River Basin is traversed by Agusan River that runs 350 kilometers with an estimated drainage area of 12,020 sqkm. Its headwaters are at the southern end of the Pacific Cordillera near Mati, Davao Oriental and flows northward through Compostela Valley, Agusan del Sur (via Agusan Marsh), Agusan del Norte, and finally drains into Butuan Bay (see Figure 3-4). It is fed by eleven principal tributaries coming from the Pacific Cordillera and the Pantaron Range. It features the Davao-Agusan trough in its central part.
At least three groundwater basins are found In Mindanao: the Agusan River Basin, Misamis Occidental Basin, and Pulangi River Basin (Figure 3-5), Groundwater is recharged by rain and seepage from rivers. It contributes 14 percent of the total water resource potential in the country. Region XII has the lowest potential source of groundwater, while Region 10 X has the highest surface water potential (Table 3-8). Wetlands Wetlands serve as traditional source of protein and livelihood for many people and as sanctuaries for numerous biological species. Wetlands or freshwater swamps play a critical role in ecological services particularly in containing floodwaters in critical river systems. Mindanaos two major wetlands, the Liguasan and Agusan, are integral parts of the two largest watershed systems described above, the Pulangi and Agusan, respectively. Liguasan (or Ligawasan) Marsh straddles three provinces (Maguindanao, North Cotabato and Sultan Kudarat) and covers 20 municipalities and one city. It is the largest swamp and marsh area on the island spanning 288,000 hectares where about 1.1 million predominantly Maguindanaon Muslims live (NSO 2000). It consists of river tributaries, small lakes and ponds, freshwater marshes, and some 140,000 hectares of arable land that surfaces and gets cultivated during dry months. Thus, the primary means of livelihood of the population are fishing when water levels are high, and agriculture when the levels are low. Because of its very rich wildlife, the marsh has considerable potential for nature tourism. It is known to support species of threatened endemic birds, including the Philippine eagle and the Philippine duck, the Philippine crocodile, and various other species. In view of this, some 43,900 hectares of Liguasan Marsh was declared as Game Refuge and Bird Sanctuary.
Unfortunately, the Marsh area is also a stronghold of insurgents, making access to it restricted. As such, the populations access to economic opportunities and social services has also been limited, leading to the peace and order problem in the area. A key feature of Agusan river basin is the Agusan Marsh, which covers about 19,200 hectares during rainy months and 14,835 hectares during dry months. It straddles eight municipalities of Agusan del Sur province. Agusan Marsh is a very important freshwater wetland to the country due to its vital roles of sustaining biodiversity and stabilizing the hydrological activity in Agusan. It is the habitat of rare and endangered flora and fauna, including migratory birds, and serves as a sediment trap and a flood retention basin that cuts peak discharge of flash floods to downstream areas. In recognition of its significance as a wetland ecosystem, some 14,836 hectares of the Marsh was declared a Wildlife Sanctuary in October 1996. It was also designated as protected area under the National Integrated Protected Areas System (NIPAS). Some parts of the marsh are used as traditional fishponds. During dry season, the highly fertile soil that gets exposed as water subsides is planted with corn and peanut. Some other parts are totally converted to agriculture, planting commodities that are suitable for saturated soil conditions. While such conversion ensures income for farmers, it compromises the integrity of the wetland ecosystem. The introduction of new vegetation and disturbance of water flow upset the integrated ecosystem leading to biodiversity loss. In terms of its hydrological role, Agusan Marsh stores rainwater and moderates or stabilizes the flow of floodwater downstream towards Butuan City. The controlled water flow helps maintain river flows, preserves water quality and increases the biological productivity of aquatic life. The swamps complex ecosystem also makes it a good place for educational tours and scientific study. It is a place where students and the general public could learn about the unique diversity of fauna and flora, geology, hydrology, etc. and appreciate not just
11 This section draws from Habito (2009).
beauty and nature but also the importance of watersheds and wetlands. Marine and coastal Ecosystems The Philippines has one of the longest coastlines in the world, estimated to stretch some 36,289 kilometers, of which about one-third are in Mindanao. A total of 680,000 sqkm of territorial waters are also within Mindanaos jurisdiction, containing some of the worlds richest ecosystems. As in the rest of the Philippines, the marine and coastal zones in Mindanao consist of a variety of tropical ecosystems. These include marine fisheries, coral reefs, seaweed and seagrass beds, mangroves, sandy beaches, rocky headlands, sand dunes, wetlands, estuaries and lagoons. These host an extremely diverse array of biological life earning the country global recognition as a mega-diversity area. The most prominent marine ecosystem area bordering Mindanao on the west and south is the Sulu-Sulawesi Sea, which encompasses more than 945,000 sqkm. It is a major part of the Coral Triangle, a globally recognized mega-biodiversity area covering parts of Brunei, Indonesia, Malaysia, Philippines, East Timor, Papua New Guinea and the Solomon Islands. Located among the richest fishing grounds of the country, Mindanao accounts for more than half of total commercial fish catch nationwide. Apart from fisheries, the rich coastal and marine resources of Mindanao also present great livelihood and business opportunities in other economic activities such as the pearl trade and ecotourism. Illegal but lucrative trade in restricted marine products such as various endangered species and corals has also been a reality that calls for stronger governance efforts. Biological Diversity
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While no specific data for Mindanao are available, the islandregion largely mirrors the biodiversity situation in the country, with even worse challenges. Figure 3-5 indicates the general situation of biodiversity in Mindanao and how it relates with Luzon and Visayas in terms of various forms of forests and terrestrial biodiversity.
10 ESSC (2008b).
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Source: ESSC
Source: ESSC
Table 3-6. CADT and CALT Approved for Mindanao (As of 30 June 2010)
% of total land area
No of right holders
No of right holders
11 15 14 14 20 0 74
0 5 1 21 0 0 27
The Philippines is one of the worlds 18 mega-diversity countries, which together account for between 60 and 70 percent of global biodiversity. It has very high endemicity, with 75% of amphibians, 70% of reptiles and 64% of mammals being endemic to the country. However, it has been tagged by the International Union for Conservation of Nature (IUCN) as a biodiversity hotspot that is, a country where biodiversity is subject to extreme threat from deforestation, conversion, fragmentation of natural habitats, unregulated trade, and overall low environmental quality. Nearly 200 vertebrate species are now threatened by extinction. Endemic species such as the goldencrowned flying fox, the Philippine cockatoo and the Philippine eagle are barely surviving in remaining small forest fragments. There are numerous threats to Philippine biodiversity, foremost of which is forest destruction. Others include hunting for trade, trophy or meat, especially of birds; and the reckless introduction of exotic species. The risks associated with biotic invasions have increased enormously in the past 40 years. Among the most damaging invasive alien species have been the giant catfish, black bass, golden snail, toads including the marine toad, and the American bullfrog. Aquatic plants like the water hyacinth and water fern have also had a significant adverse impact on wetland biodiversity.
Approved cADTs
Approved cAlTs
region
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Figure 3-3 Pulangi Watershed and River Basin Ecosystem Table 3-7. Watershed Classification, Mindanao
Watershed Classification Largest Major Large Medium Small and Micro TOTAL
Source: ESSC, 2010, Internal Database.
Class Size (sq km) > 10,000 1,000 to 5,000 500 to 1,000 100 to 500 < 100
Wanton logging with little effort to provide for replacement growth, leading to forest depletion and massive reduction of forest cover, leading to wildlife habitat destruction, along with harmful downstream effects of soil erosion, siltation and flooding Construction of river dams for hydroelectric power generation that has led to massive disruptions in the natural ecology of river systems, and submersion of human settlements in affected areas. It has also complicated the downstream problems associated with logging and deforestation. Siltation of dams leads to significant reduction in power generation capacity of hydro power plants Swidden (slash-and-burn) farming by upland populations (usually but not always indigenous) driven farther up the mountains by invading settler populations and/or by lack of alternative livelihoods to rely entirely on unsustainable upland agriculture practices for a living Unregulated mining activities without requisite environmental safeguards leading to release of substantial amounts of toxic chemicals and mine and mill tailings, especially from small-scale operators, into the environment, and to soil erosion, degraded lands and landslides Excessive fishing activity beyond sustainable catch levels, leading to depletion of fishing grounds and drastically reduced fish catch, raising poverty levels in increasingly populated coastal settlements Manufacturing activities built on extractive industries and/ or groundwater use without proper consideration of resource carrying capacities or groundwater recharge rates . Large scale monoculture plantation agriculture that has led to long-term soil degradation and fostered ever-increasing dependence on harmful inorganic fertilizers and chemical pesticides.
Each of these economic resource-use patterns and attendant environmental impacts is discussed in greater detail below.
Source: ESSC
Source: ESSC
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Siltation of the Pulangi River has also come from unsustainable agriculture practices and establishment of migrant communities within the area. The low forest cover and burning of large cogon areas have exacerbated the effects of El Nio as aquifers are unable to adequately recharge. The river is further threatened by a proposed Mega Dam project, which is expected to submerge at least 22 villages in seven towns of Bukidnon and Cotabato provinces. The Agusan river basin system has been suffering from similar forest degradation, siltation, and pollution. Denudation of the forests along the Pantaron range has increased water flow and eroded the soil thus causing devastating flooding in Agusan and Compostela Valley. The future of the Pantaron hangs in the balance as it suffers from the lack of effective management in the face of aggressive and shortsighted competition for its natural resources, mainly land, water and timber. The pressures on the Pantaron Range and its indigenous communities have intensified as extractive activities increase and influx of outsiders accelerates, presenting a formidable challenge and responsibility for Bukidnon. While most prominent in the two large water basins fed by the Pantaron Range, similar downstream flooding and siltation of agricultural lands are manifested in other parts of Mindanao. Recent major incidents of flooding in lowland areas, including urban centers like Butuan City, Cotabato City, Davao City and Jolo are attributable to the past indiscriminate logging practices and other unsustainable economic activities in the uplands described above.
exists an official policy for mangrove protection, cutting of mangroves remains rampant. Illicit trade in corals and other endangered marine species has been a problem over the years, particularly in the seas off Mindanao. Destruction of corals also destroys breeding grounds and sanctuaries for fish, thereby affecting fishery resources in a significant way. In sum, the coastal and marine environment of Mindanao is under severe threat, resulting in loss of critical habitat that threatens fisheries productivity, ecosystem integrity and biodiversity, and the economic foundation for millions who depend on fisheries and tourism for livelihood. Serious environmental degradation has resulted from a range of socio-economic factors combined with institutional and policy failures. The major environmental problems affecting coastal resources and habitats include pollution and siltation of coastal waters and estuaries; depletion of live corals, sea grasses and mangroves; improper use of foreshore lands, wetlands and estuarine areas; and depletion of fish stocks. As an archipelagic area, Mindanaos coastal and marine resources demand as much attention and prudent management as its land-based natural resources. Thus, any rural development interventions in Mindanao will not be complete without initiatives to address the adverse effects of economic activities, both legal and illegal, drawing on the coastal and marine environment.
Source: ESSC
Mining Activities
The national strategy to designate mining of minerals as one of major development sectors has substantially increased exploration and mining activities especially in northern and eastern Mindanao where most mineralized areas may be found. Data from the Mines and Geosciences Bureau (MGB) show that there were 102 existing Mineral Production Sharing Agreements with government as of March 2010. These represent a third of the national total of 313 and cover an area of 4,894 square kilometres. There were also 23 permits issued to explore various areas covering about 700 square kilometres. In the same period, seven out of 42 Mineral Processing Permits issued by MGB were in Mindanao. So far, the only Financial and Technical Assistance Agreement that has been issued in Mindanao is for the Tampakan Copper Project of Sagittarius Mines, Inc (SMI). The project, covering 235.7 square kilometres, straddles South Cotabato, Sultan Kudarat, and Davao del Sur. The environmental threats from mining include risks of major spillage of mine tailings in the case of medium to largescale mining operations, and mercury pollution, soil erosion, sedimentation of water bodies, and non-reclamation of land after mine closure in the case of small artisanal mines. It is estimated that some 131 million metric tons of metallic mine waste and about 136 million metric tons of mine tailings were generated in the Philippines from 1990 to 1999. Table 3-8 lists the various adverse environmental effects that can arise from different mining processes. Apart from its adverse environmental effects, mining operations, especially those by large-scale mining firms, have been associated with the social problem of displacement of indigenous peoples
Source: ESSC
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and other upland settlers from their traditional abodes. This is particularly an issue in Mindanao where various IP communities are often found in mineral-rich areas. What are considered sacred grounds for some IP communities have often been sacrificed to give way to large-scale mining operations. The situation often presents a dilemma for affected IP communities, who tend to welcome the opportunities of employment and livelihood that mining operations bring, but often at the expense of longstanding cultural traditions. The experience of the Mamanwa tribe in Northeastern Mindanao is illustrative (see Box 3-1), and is replicated in other areas where large mining firms enter into ancestral lands to establish operations.
Groundwater Depletion
Population growth and increased water-using industrial and commercial activities have led to gradual depletion of groundwater, as withdrawal (extraction) rates have been exceeding aquifer recharge rates in densely populated parts of Mindanao. This is now observed in Cagayan de Oro and other densely populated centers in Mindanao, manifested in a drop in the static and pumping water levels of the water district wells. The Mindanao aquifer is generally characterized as highly to moderately productive, with moderate to low potential recharge. Aquifer recharge is dependent on watershed status and characteristics and land use. Change in land use and geographical shifts in population impact the ability of aquifer to replenish its groundwater stock or reserve. These shifts are often influenced by forestland and agricultural land conversion, which are in turn reinforced by market demand and government policies. All these imply that groundwater usage in Mindanao must be managed carefully, as excessive extraction and poor management can lead to land subsidence and saltwater intrusion, as is being observed in Cagayan de Oro. There is thus a need for more deliberate assessment of groundwater recharge rates vis--vis withdrawal rates due to industrial and domestic use.
Agriculture Impacts
Crop plantation areas in Mindanao are rapidly expanding, with dominant crops being Cavendish bananas, pineapple, and oil palm. Such plantation-type farming is highly dependent on pesticides and fertilizers that pollute the soil, water and air. Aerial spraying of pesticides, in particular, has been controversial due to alleged incidences of long term illnesses from repeated airborne pesticide contamination. Similarly, pesticide use especially by upland farmers harms the soils natural chemistry and groundwater quality. Other environmental impacts of agricultural activities include extensive soil erosion from plowing of large areas, and carbon release from burning of rice stalks and husks, and of sugar cane fields. More recently, commercial farming of biofuel crops such as jatropha is posing a new challenge on food sufficiency. All these indicate the need for improved information and knowledge on the environmental trade-offs involved in increased agricultural production, and greater efforts towards expanding knowledge on sustainable agriculture technologies.
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Potential Effects
Destruction of plant and animal habitat, human settlement, and other surface features (surface mining) Land subsidence (underground mining) Increased erosion; silting of lakes and streams Waste generation (overburden) Acid drainage (if ore or overburden contains sulphur compounds) and metal contamination of lakes, rivers, streams, and groundwater
Area
Focus
Collaboration initiatives towards comprehensive landscape management and greater human security Partnership building towards sustainable management of Lake Mainit
Ore concentration
Waste generation (tailings) Organic chemical contamination (tailings often contain residues of chemicals used in concentrators) Acid drainage (if ore contains sulphur compounds) and metal contamination of lakes, rivers, streams, and groundwater
Strengthening environmental governance through local policy formulation Act as coordinating body working towards unified policy & programs in the management of the Gulf Inter-LGU cooperation for participative decision-making processes. Facilitates dialogue on coastal-related issues Local government initiatives for protected area management
Air pollution (sulphur dioxide, arsenic, lead, cadmium, and other toxic substances) Waste generation (slag)
South Cotabato and Sultan Kudarat Maguindanao LGUs: Paglat, Datu Paglas, Sultan sa Barongis, & General S.K. Pendatun
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Coastal and marine fisheries will have to be pursued in more carefully measured steps, to avoid the further depletion of fishery resources that has already impacted on the lives of millions of Mindanawons. Mariculture will figure more prominently in Mindanaos fisheries sector, particularly as efforts to rejuvenate marine fisheries resources through fishing moratoriums on key fishing grounds will reduce production from that source in the short to medium term. Mining is in Mindanao to stay; there is no room for extreme positions on this. A number of large mining projects are just starting or are in the pipeline, and it is widely agreed that the key imperative is to ensure responsible mining operations, whether by large, medium or small firms by defining clear parameters for responsible mining. Strengthening capacities of local governments to properly accredit and regulate small and medium scale mining firms (as provided by law) also needs strong attention. The prospects for manufacturing, particularly beyond those based on processing of agricultural and other primary products (fish canning, minerals processing) will be severely constrained by energy availability and cost through the medium term. Large hydroelectric dams and power plants are now faced with greater risks to efficiency and profitability by siltation and loss of surface water. In light of this, small hydroelectric plants should be encouraged instead. Similarly, other renewable energy facilities (solar, wind, biomass) must be given priority support and deliberate attention (See Chapter 9). Tourism development, particularly ecotourism, can be a winwin for the economy and environment, and must be pursued vigorously through policy reform and public investments. Tourism development involving nature and the environment must always aim for environmental sustainability and integrity, while providing maximum benefits to the inhabitants. Finally, peace and security is likely to be compromised anew within the next 20 years if various natural resource and environment pressures are not properly managed and allowed to lead to tensions and conflicts (Chapter 5). These pressures may include tightening water supplies; competing claims over agricultural and mineral lands; depleting fisheries; and air, soil and water degradation due to pollution from mining and industrial activities. This makes it even more imperative that ecosystems are planned and managed in a way that will prevent such pressures from even arising. Asserting common stewardship of the natural resource base would help avert or minimize the likelihood that such tensions will arise and escalate into violent conflict in the future.
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Mindanao in 2030: The Mindanao That We Want, The Mindanao That could Be
CHAPTER 4
Mindanawons of all cultural or socio-economic backgrounds have attained a sustainably uplifted quality of life through their collective achievement of a peaceful, developed, autonomous and integrated Mindanao that is the vanguard for the countrys sustainable development.
The operative words for this vision are as follows: Mindanawons of all cultural or socio-economic backgrounds cognizant that Mindanao is a land of rich diversity in its peoples, will nonetheless find unity in their shared aspirations; A sustainably uplifted quality of life mindful that it is the welfare of Mindanawons and their families that is the end object of Mindanaos development, and that their level of welfare will not only be raised, but sustained through future generations; Collective achievement stressing that the desired outcomes for Mindanao will not come from without particularly not from the central government, the national capital nor the rest of the country but will be achieved through the collective efforts of Mindanawons themselves, acting in unity and harmony; A peaceful, developed and integrated Mindanao noting that peace and development are the two words that almost unanimously spring from the lips of Mindanawons weary of decades of violent conflict and backwardness, and of age-old fragmentation across physical, ethnic, social and economic divides; and finally, Vanguard for the countrys sustainable development asserting that Mindanao already leads in many areas of endeavor, and will achieve national, regional and international excellence in even more areas of endeavor in the years ahead, the benefits of which shall accrue to present and future generations of Mindanawons.
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Mindanao shall by then be distinguished by its: 1. Distinctive governance that is culture-sensitive, self reliant and responsive as it asserts self determination for Mindanawons; Vibrant economy that is financially physically connected and economically self-reliant, integrated;
2.
to information and communication technology, costcompetitive energy, and ample and widely accessible water supplies; and Responsible and sustainable management of Mindanaos natural and cultural resources that harnesses them to equitably uplift the lives of the wide mass of Mindanawons and minimizes risks from natures threats. A participatory and culture-sensitive Mindanao governance and political framework that asserts self reliance and self-determination, marked by: Stable, self-reliant, responsive and responsible Local Government Units (LGUs); Effective coordination and monitoring mechanisms at the Mindanao-wide, regional and inter/intra-provincial levels; A responsible and empowering central government that allows local governments and communities to direct development directions and initiatives; Indigenous peoples being able to exercise selfdetermination in managing and governing their respective ancestral domains; and Wide respect for the rule of law and human rights. Active and synergistic international economic, cultural and political linkages, with ASEAN and Asian neighbors, the Middle East, and the rest of the world.
The Mindanao economy is growing at an average annual real GDP growth rate of 7-8 percent, average annual income of Mindanawons (GDP per capita) exceeds P16,000 in constant 2009 prices, and unemployment rate is no more than 3 percent. At least 80 percent of Mindanao LGUs have up-todate comprehensive development plans (CDPs) and comprehensive land use plans (CLUPs) that incorporate climate change adaptation measures; and Mindanao LGUs have at least 17 percent of their budgets funded by locallygenerated revenues. Working alliances or formal collaborative mechanisms among municipalities are present in at least 50 percent of Mindanao provinces. At least 90 percent of national roads in Mindanao are paved and in good condition, and water-based (river, lake and coastal) transport services are in more active use for transport within Mindanao. LGUs have made deliberate moves to promote distinctive Mindanao art and culture in the design and landscape of buildings, houses and various structures and facilities.
comprehensive land use plans (CLUPs) that incorporate climate change adaptation measures; and Mindanao LGUs have at least 34 percent of their budgets funded by locallygenerated revenues. Working alliances or formal collaborative mechanisms among municipalities are present in at least 75 percent of Mindanao provinces. All (100 percent) national roads in Mindanao are paved and in good condition, limited rail transport services are operational; and river, lake and coastal transport services continue to increase all over Mindanao. Most places in Mindanao possess a distinctive Mindanao ambience, manifested landscapes and architectural designs of buildings, houses and public structures and facilities.
All places in Mindanao possess a distinctive Mindanao ambience, manifested landscapes and architectural designs of buildings, houses and public structures and facilities.
In sum, Mindanao in 2030 will be a place that Mindanawons, collectively and individually, generally feel good living and working in, and feel proud about as it attracts visitors and investors in large numbers from the rest of the country and the world.
4.
By 2030, A general atmosphere and culture of peace prevails in every part of Mindanao, where cultural pluralism is a widely accepted reality that enriches rather than divides society. Income poverty is down to 15 percent of the Mindanao population. Average life expectancy in Mindanao has improved to 72 years, elementary and high school enrollment rates are at 100 percent, with 90-95 percent completion rates. Forest cover in Mindanao has stabilized at no less than 40 percent of land area. The Mindanao economy is growing at an average annual real GDP growth rate of 8-10 percent, average annual income (GDP per capita) of Mindanawons exceeds P50,000 in constant 2009 prices, and full employment prevails in Mindanao. All (100 percent) Mindanao LGUs have up-to-date comprehensive development plans (CDPs) and comprehensive land use plans (CLUPs) and are considered climate change-resilient; and Mindanao LGUs have at least 66 percent of their budgets funded by locally-generated revenues. Working alliances or formal collaborative mechanisms among municipalities are present and common in all Mindanao provinces, with the majority of Mindanao municipalities being part of such an alliance. All (100 percent) national and provincial roads in Mindanao are paved and in good condition, rail transport services linking several provinces are in active use, and water-based transport services are a common feature of an integrated multi-modal Mindanao transport system.
5.
By 2020, A consolidated political settlement has been attained that is consistent across the different agreements reached with the MNLF, MILF and NDF. Consequently, complete disarmament, demobilization and reintegration (DDR) of all combatant forces has been achieved, and all former conflict areas have been completely rehabilitated. Income poverty is down to 25 percent of the Mindanao population. Average life expectancy in Mindanao has improved to 69 years, and elementary and high school enrollment and completion rates have improved by 75 percent over their 2010 levels. Forest cover in Mindanao has increased to at least 40 percent of land area. The Mindanao economy is growing at an average annual real GDP growth rate of 8-10 percent, average annual income (GDP per capita) of Mindanawons exceeds P22,000 in constant 2009 prices, and unemployment is no more than 2 percent. All (100 percent) Mindanao LGUs have up-to-date comprehensive development plans (CDPs) and
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CHAPTER 5
exacerbate the existing divide that has separated the two parties. In the last 14 years since the FPA signing, the gap continues to widen and hound both the GRP and MNLF sides on the issue of the implementation or non-implementation of said agreement. The MILF gained prominence after the promised peace and development had remained unfulfilled. The failure to deliver basic services and reconstruction of the conflict areas had, in a very subtle way, created a new niche for the MILF. Today, the MILF is perceived, rightly or wrongly, as the Liberation Front for pursuing the unfulfilled promises to the Bangsamoro. Notwithstanding the success or failure of the on-going peace negotiation, the MILF has assumed the role of vanguard of the Bangsamoro struggle, and no negotiated peace settlement is deemed possible without MILFs active participation. The relative peace currently prevailing conceals persisting deep prejudices, biases and stereo-types across cultural and political lines tracing their origins in historical injustice. Traditional and newer forms of injustice, whether real or perceived, coupled with the politics of exclusion and years of neglect have exacerbated these divides that add volatility to the struggle for ancestral domain and self-determination. The cultural and political divides that evolved from historical divides are the major obstacles in uniting Mindanawons under one banner. The same historical divides are the rationale behind territorial disputes and disagreements over types of governance for Mindanao. Annexes 5-A and 5-B depict the conflict vulnerability of the various parts of Mindanao, and the perceived causes of conflict in the analysis of various institutions and forums.
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Liberation Front (MILF). And third was the military mutiny and rebellion under the Rebolusyonaryong Alyansang Makabansa (RAM), Soldiers of the Filipino People (SFP) and the Young Officers Union (YOU). The Gloria Macapagal-Arroyo administration later issued Administrative Order No. 03 reiterating the state adoption of the peace process policy. It articulated the state policy of according priority to the peace process in dealing with the insurgents, particularly with the MILF after the all-out war waged by the Estrada Government in the year 2000. The word process is highlighted to emphasize specifically that peace is in fact a process, as it involves the transformation of the whole person, the whole community and the whole country. Three basic principles shape the new framework of the peace process: 1. The peace process must be community-based, defined not by government alone, nor by the armed rebels, nor any single sector, but by Filipinos as a community. It must lead to a new social compact for a just, equitable, humane, and pluralistic society, and insure free and fair political competition. It must seek a principled and peaceful resolution of the armed conflicts, with dignity for all concerned. Military pacification campaigns do not work. It leads to nowhere but more rebellion and insurgencies. Negotiated political settlement where there is compromise and dignity is the way to address conflict.
The six paths need to be undergirded by five (5) components of the peace process, namely: 1. Governance and Empowerment. This is the process of establishing or rehabilitating political systems that are supportive of peace-building. The concern is to sustain and to consolidate a long-term peace, through the conduct of elections and the establishment of institutions of governance that are accountable and participative. Process of Development and Economic Rehabilitation. Rehabilitation and reconstruction, to be effective, must be undertaken on wholesale. Healing and Reconciliation. It must be recognized that the process of transformation must address not only the visible, tangible and physical effects of war, conflict or violence but also the impact on the individual as a victim of violence and his relations with his fellow human beings. Enculturation for Peace. Schools/madaris and churches/ temples/ mosques need to introduce peace programs that engender a culture of peace and dialogue. In fact, the same peace education needs to be introduced also in non-formal education, particularly geared for out of school youth. Continuing Management of Conflict. The praxis of the peace process in the Philippines is very complex given the multi-faceted factors confronting its landscape, which proves volatile depending on the hands of political actors that hold it.
(1) Good Governance; (2) Delivery of Basic Services; (3) Economic Reconstruction and Sustainable Development; and (4) Security Sector Reform.
also seeks to expand the concept of security to include Bridging Leadership modules and the seven areas in the UN Human Security Paradigm. The approach puts the security of peoples their physical safety, economic and social well-being, respect for their dignity and worth as human beings and most of all, the protection of their human rights and fundamental freedoms - at the heart of the human security paradigm.
2.
3.
4.
2.
3.
5.
EO 125 and AO 03 identify six (6) paths to peace. These 6 paths are to be taken together as comprising one package of actions that must be undertaken by all units in society, country, municipality, barangay, and family. The six paths to peace are as follows: 1. 2. Implementation of social, economic and political reforms to address the root causes of rebellion and social unrest; Consensus-building and empowerment through mobilization and facilitation of peoples participation and support for community peace initiatives; Peaceful, negotiated settlements with rebel groups; Reconciliation with and re-integration of former combatants and civilian victims; Continued protection of civilians caught in the midst of armed conflict, reduction of violence in conflict areas and prevention and management of conflict; and Building and nurturing a climate of peace including peace advocacy and education.
More recently, a National Action Plan (NAP) on Women, Peace and Security was promulgated by the Arroyo government via Executive Order No. 865, in recognition of the crucial role of women in the peace and security issue. In compliance with the UN Security Council Resolutions 1325 and 1820, the NAP has the following goals with respect to Filipino women: Protection and Prevention of violations of womens human rights in armed conflict and post conflict situations; Empowerment and Participation in areas of peace building, peacekeeping, conflict prevention, conflict resolution and post-conflict reconstruction; Promotion and Mainstreaming a gender perspective in all aspects of conflict prevention, conflict resolution, and peace building; and Capacity Development and Monitoring & Reporting, to enhance accountability for the successful implementation of the NAP and achievement of its goals.
3. 4. 5.
6.
The new Aquino administration aims to formulate a coherent policy framework that will constitute the governments comprehensive National Security Policy, to guide all dealings with both rebels and victims of the insurgency. It has been articulated by President Aquino that the said National Security Policy must focus on four (4) key elements:
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The GRP and the NDF has signed the Comprehensive Agreement on Human Rights Law and the International Humanitarian Law (CAHRIHL), whose implementation has remained contested. Except for establishing joint and respective secretariats, the agreement has largely remained only in paper. The suspension of the peace talks, because of the Visiting Forces Agreement (VFA) and the inclusion of Jose Ma. Sison and the CPP-NPA in the US list of foreign terrorist groups froze the discussion on the economic, social and political reforms that would be the main agenda for the comprehensive peace agreement between the GRP and the NDF. On a local scale, the GRP also confronts armed breakaway groups from the ranks of the NDF owing to the ideological split over strategies and on the issue of central leadership. These groups further split geographically and sectorally (Visayas and Mindano). The Mindanao group, the Rebolusyonaryong Partido ng Manggagawa (RPM-M) has become a very small armed group that operates at the level of barangays (villages). The smallness of the group and the limited areas of operation by RPM-M are key factors for the changing moods in the national policy to consider the RPM-M issue to be more under jurisdiction of local governments and development agencies (i.e., rather than of the military). The Indigenous Peoples struggle receives far less attention than the Muslim insurgency. Their claims remain largely hidden from the public view, because they do not have an organized armed liberation front to assert their ancestral domain and right to selfdetermination in their local affairs. But the justness and legitimacy of their claims are not diminished by lack of organization and a home-grown army. The conflicts between IP communities and other users of claimed ancestral domains arise mainly from conflicting and overlapping tenurial instruments and world views exacerbated by the entry of foreign and local investors without having obtained genuine free, prior and informed consent (FPIC). Another source of conflict particularly prominent in Muslim Mindanao is the local family or blood feuds also known as rido. Rido has many and varied manifestations, with the more prominent face appearing in the form of competitions for governance and control over areas or territories. The other face of rido manifests itself when the personal or clan maratabat (honor) is transgressed either by direct assaults or by omission, particularly in cases involving family inheritance and obligations imposed by marriages. Rido gained prominence anew in the wake of the Maguindanao massacre in November 2009 resulting in the deaths of members of the Mangudadatu Clan in the hands of members of the Ampatuan Clan. As in other rido conflicts, there is likely to be continuing bloodshed between the two warring clans until an enduring settlement of blood debt is found.
The expanded presence of the US forces in Mindanao and Sulu with their high technology equipment and facilities is meant to build the capacity of the AFP in combating threats coming from the Muslim insurgency and the terrorists enclaves in the Southern Philippines. The monitoring and surveillance of the Sulu-Sulawesi Sea Corridor with the use of high technology and drones indicate the importance being given by the US to Southern Mindanao in the war against terror. The foreign security concerns in the Southern Philippines are very palpable through the build up of modern airport infrastructures in Jolo (Sulu), Sanga-Sanga (Tawi-Tawi), Zamboanga City and General Santos City which can accommodate large stateof-the-art US military aircraft. These airport improvements are reinforced by the construction and rehabilitation of major and minor seaports in Southern Philippines for all types of shipping vessels, with visits by US Navy warships in Zamboanga City having become a regular occurrence. While the US presence in Southern Mindanao is officially related to the effort to combat terrorism, attention has been called to the crucial importance of making a careful distinction between insurgency associated with the legitimate struggle for land and self-determination on one hand, and individuals and groups engaging in senseless violence and plain banditry like kidnap for ransom operations, on the other. Not a few also express suspicion that there are more basic economic interests behind the War on Terror, pointing out that in the focal areas for US intervention in the Middle East are located vast oil and natural gas reserves and critical oil delivery pipelines. In the case of Southern Mindanao, it is located in the highly strategic and resource-rich Coral Triangle that is also the strong object of interest of China and other Southeast Asian nations bordering it. The same skeptics thus suspect deeper motivations behind the US presence in Southern Mindanao beyond combating terrorism. In the Southern Philippines, the prominent targets in the local war against terrorism are the Abu Sayyaf Groups (ASG) and the Jemaah Islamiyya (JI), blamed for a spate of kidnappings and killings perpetrated especially against foreign targets in the past years. These two groups have been identified as part of the international network of the internationally-notorious Al-Qaeda led by Osama bin Laden. These identified terrorist groups remain a strong threat to peace and security in the region and in the Southern Philippines, in particular.
negotiations, the MILF Panel has presented 15 a formula of unity to the GRP as embodied in its proposed Comprehensive Compact. This involves the setting up of an asymmetrical state substate relationship wherein the State would have jurisdiction of national defence, foreign relations, coinage and currency, and postal services. All other functions or areas shall be within the jurisdiction of the Substate. Some powers may be of joint jurisdiction. One unfinished though contested agenda is the full implementation of the 1996 Final Peace Agreement between the GRP and MNLF. The continuing gap between the GRP and the MNLF involves not only political issues like governance and territory, but also reconstruction of an area that covers the Special Zone for Peace and Development (SZOPAD) or the 15 provinces in Southern Philippines that includes Palawan. The multi-donor and World Bank relief and rehabilitation program through the PDCs and CDA is seen as largely piecemeal and dispersed within the SZOPAD. While benefitting small MNLF communities, the initiatives are segmented (among MNLF/MILF beneficiaries) and isolated, lacking clear relationship to a coherent larger strategy of reconstruction. Satisfactory resolution of the unsettled questions on the implementation of the FPA with the MNLF also bears on the ongoing peace negotiations with MILF. Meanwhile, another parallel negotiation that with the NDF is national in scope, but whose effects directly impact on the peace and security of Mindanao. Outside the five ARMM provinces, the rest of Mindanao is conflict vulnerable due to the presence of the NDF-CPP-NPA. The peace talks between the GRP and the NDF-CPP-NPA has remained suspended. While both parties have articulated the willingness to go back to the negotiating table, they both put conditions that actually prevent the resumption of the peace talk. The implementation of CAHRIHL remains a formidable challenge for the new government. The clear imperative is for the peace talks to move forward. A key precondition is for the new administration to define its policy and stance vis-a-vis the proposed Comprehensive Agreement on Social and Economic Reform (CASER), including the issue of the active presence of the US military in the country under the contentious VFA. Though the IPs are not subject of any peace agreement except the IPRA, there is a belief among them that the years of neglect also entitle them, as a matter of right, to catch up programs for the IP communities. The catch up programs shall include, among other things, the effective delivery of basic services such as health and education to the IP communities and livelihood programs and sustainable development that are appropriate to their culture and habitats.
Peace Initiatives
The MILF accords priority to political settlement and securing self-governance over their claimed ancestral domain. The MILF leadership views socio-economic development initiatives in contested areas prior to political settlement negatively, and considers them as counter-insurgency programs. However, the MILF leadership has expressed openness to an approach that would pilot a Bangsamoro development model implemented by the Bangsamoro Development Authority (BDA) in the reconstruction of conflict affected areas.14 In ongoing
14 Dialogue between the Mindanao 2020 Team and MILF leaders led by Jaafar Ghazali, Cotabato City, April 22, 2010. 15 Opening Remarks of Mr. Mohagher Iqbal, Chairperson of the MILF Panel for the MILF-GRP negotiations.
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Environmental Security
Beyond political and ethnic issues, Mindanao is faced with natural and anthropogenic (man-made) hazards that have been posing genuine risks to a large part of its population. Climatological hazards (typhoon and drought) have become severe and are expected to worsen in years ahead. Anthropogenic hazards (such as incessant and unsustainable mining and deforestation) in combination with natural hazards have exacted heavy costs on lives, properties and livelihood to already poor populations in Mindanao. Disasters related to these hazards threaten to further increase internally displaced persons or environmental refugees. Consequently, conflicts arising from environment-related occurrences and impacts could also be expected to emerge and worsen.
The first issue is the security of the international sea lane often referred to as the Lombok-Makassar and the Sulu Sea Lane (Figure 5-2). The Malacca Strait is currently much more visible and considered one of the busiest sea lanes between East and West. But in terms of greater deadweight capacity and suitability for bigger ships, the Lombok-Makassar-Sulu Sea Lane will assume greater primacy and strategic importance, especially in the coming years as the Southern States are projected to trade much more actively with China and points beyond the Pacific. The security of these sea lanes would necessarily involve the active participation and partnership not only of the three littoral states Indonesia, Philippines and Malaysia but also of the other major users of the sea lane, including Australia, China, Japan, the US and EU. The growing cooperation, among the three littoral states in policing the Celebes (Sulu-Sulawesi) Sea to confront piracy and the movement of suspected terrorist groups show the importance of the said basin. The second key issue is the matter of securing the rich gas and oil deposits in the area. The same location is known to possess rich oil and gas deposits that could respond to the industrialized worlds need to find new sources of fossil fuel. To the extent that the developed world would continue to depend heavily on fossil fuels notwithstanding the rise in alternative and renewable energy sources, the Sulu-Celebes Sea basin would assume increased prominence as an important lifeline in the
years ahead. This partly explains the renewed and aggressive activities in the contested areas west of the country (particularly the Spratly Islands), and the ongoing Exxon-Mobile exploration in the Sulu Sea. The third issue is sustainability of life itself threatened by climate change and excessive pollution. The Celebes Basin is at the heart of the Coral Triangle, which is a globally recognized mega-biodiversity area (Figure 5-3). Increased naval activity in the area for both commercial and military defense reasons will inevitably result in pressures on the marine environment. Thus, due attention must be given to the environmental management of the area, which will inevitably require close multilateral cooperation among the surrounding states.
1.
Peaceful and negotiated political settlement with MNLF and MILF, and a similar political settlement with NDF, marked by attainment of satisfactory autonomy and genuine self-determination for Mindanawons, and redress and elimination of age-old injustices in various forms . Successful implementation and completion of a generally acceptable disarmament and re-integration of all former combatants from all sides of the conflict. An entrenched policy environment for sustained peace, development and human security in Mindanao, supported by massive public investments and consolidated and effective institutions for sustained peace and development. Wholesale reconstruction of conflict areas, with vital social and economic infrastructures and facilities restored and enhanced, thereby transforming them into focal points of development. A firmly-entrenched culture of peace and social healing sustained through the integration of peace education in curricula at all levels. Supremacy of the rule of law within a justice system widely perceived to be fair, responsive and equitably accessible to all.
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Where We Want to go
Vision on Peace and Security
In 20 years, Mindanawons envision:
A peaceful and prosperous Mindanao, whose inhabitants feel safe and secure, and live in harmony with and among one another regardless of ethnicity, religion or cultural background.
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6.
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Targets
By 2016, Satisfactory peace agreements have been completed and signed between the government and the MILF and NDF, thereby attaining satisfactory political settlement on all sides. There are no more internally displaced persons (IDPs) arising from violent conflict. Indigenous peace education is well integrated in all official school curricula at all levels. The justice system has been rid of all discriminatory practices, and a policy environment of legal pluralism prevails. Private armies have been outlawed, dismantled and rendered non-existent.
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Ensure the final disposition of arms and mainstream former combatants as productive members of society: Pursue a widely acceptable disarmament and re-integration program involving all former combatants from all sides of the conflict. Rebuild lives, livelihoods and communities: Complete the reconstruction and rehabilitation of conflict-affected areas and the normalization of the lives of affected communities. Restore justice and the Rule of Law: Reform and strengthen the justice system towards wide accessibility and responsiveness to peculiar needs of Mindanao societies, and establish and uphold the rule of law. Firmly implant a Culture of Peace: Nurture and entrench a culture of peace and security among all Mindanawons. Widen partnerships for peace: Harness private sector, civil society and international cooperation in addressing peace, security and development. Forestall potential new threats to peace and security: Anticipate and pro-actively manage potential conflicts, particularly those arising from environment and natural resource issues and mismanagement.
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Make institutions specifically catering to ethnic minorities, particularly the National Commission on Indigenous Peoples and the newly-reorganized National Commission on Muslim Filipinos (formerly Office for Muslim Affairs) the vanguards of competent championing for the welfare of their respective constituencies. Thus, their officials and staff must be selected on the basis of demonstrated competence and integrity. In the case of NCIP, certain initiatives it must push include the following: Undertake purposive education and training of IP leaders and community mobilizers on their own history, culture and rights under the law, including and especially IPRA, and on the role of NCIP as instrument for asserting IPs rights. Guarantee that Free, Prior and Informed Consent (FPIC) of the IPs shall be faithfully enforced in the presence of their chosen counsel for any entry of local and foreign corporations into their ancestral domains. In relation to this, existing IFMA within their ancestral domains will not be renewed without FPIC and public hearing participated in by the affected communities. Undertake programs that will rehabilitate IP communities and their ancestral domains, particularly on effective delivery of basic services (health and education) and training of the IP communities on livelihood and development appropriate to their cultures and peculiar needs.
Reform the economic, social, political and administrative structures and processes towards convergence and an integrated and holistic peace policy framework. Adopt a holistic human security policy that includes, among other things, building, widening and sustaining peace constituencies among citizens. Aggressively invite private investors and investments into Mindanao, especially into the ARMM, directed to individuals and groups likely to have particular reasons for favoring Mindanao (e.g., Muslim business groups from the Middle East, Indonesia, Malaysia and Brunei; investors with higher risk appetite; etc.) Undertake an effective communication program to support the peace process, including through conduct of sustained community consultations/dialogues, at all levels of governance, as a matter of policy and practice. Effect full coherence of policies and government structures to ensure effective implementation of peace agreements and promote sustainable and long term peace and development. Pursue a unifying peace in Mindanao.
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6. 7.
By 2020, A consolidated political settlement has been achieved ensuring consistency and compatibility among the different agreements signed. Disarmament and reintegration has been satisfactorily completed. All former conflict areas have been completely rehabilitated. Incidence of clan conflict (rido) has been reduced to a third of 2010 levels. Culture sensitivity is manifest in all educational mediums. All Mindanawons are guaranteed access to a fair justice system.
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These are further elaborated on below. Make peace a government-wide concern. Make securing a lasting peace in Mindanao a concerted effort from all government instrumentalities at all levels. This cannot be the work of the OPAPP and a few other agencies alone. OPAPP, as coordinator for peace, must determine how all other key agencies of government could and should contribute to securing peace in Mindanao, in both explicit and subtle ways, with the President as Chief Crusader for Peace providing the impetus for all to do their part. Address all policy and institutional impediments to sustained peace, development and human security in Mindanao. Wittingly or unwittingly, numerous policies, rules, mechanisms and even personalities in government pose hurdles to peace. National leadership must not allow these to persist. Restore peoples trust in the peace process by (1) developing a participatory, cohesive and rationalized government policy and approach on the peace process; (2) employing an effective communication program to support the peace process; (3) actively involving all government agencies in giving primacy to the peace process, to include the security sector, the legislators, the local governments, the Cabinet, and others; and (4) harnessing effective peacemakers in the concerted effort, particularly women and youth, who have traditionally demonstrated effectiveness in bridging social divides and causing behavioral change.
Sustain, widen and intensify security sector reform (SSR) initiatives in the field and in all AFP and PNP schools and training facilities, as well as in LGUs and civil society organizations. Specific initiatives would include: Integrate the UN discourse on Human Security (Annex 5-A) and the National Action Plan to implement UN Security Council Resolutions 1325 and 1820 on Women, Peace and Security into the curriculum in all AFP and PNP schools and training facilities. Consolidate the SSR experiences in the field and harmonize the same with the prevailing culture of the priority of peace policy. Design a training manual on SSR and conduct trainors training in all branches and Commands of the AFP and PNP.
By 2030, Peace and prosperity are widely taken for granted as a way of life in Mindanao. Mindanawons take pride in their peaceful, vibrant and cohesive society, a well-managed environment and natural resource base, and superior standard of living relative to most other parts of the country. Mindanao attracts numerous visitors and investors from far and wide as the premier destination in the country.
Seek to achieve a consolidated peace settlement. Pursuing separate agreements in approaching the Muslim insurgency in Mindanao is to pursue the contradiction of a segmented or divided peace, which risks the prospect that no peace will ultimately be achieved. Separate and distinct agreements with each group will inevitably invite jealousy and continuing discord, even as it is likely to arouse ill feelings and possible antagonistic responses from among the affected Christian and Lumad populations. Firm up a cohesive, consistent and unified peace platform that addresses the root causes of Muslim insurgency, beyond the simple counter-insurgency policy manifested in area development programs. It is impossible, even with utmost goodwill, to reach satisfactory closure through separate government negotiations with both involving the same territory, same peoples and same transitional governance mechanism. The government needs to urge the Organization of Islamic Conference to intervene and facilitate the shaping of a common platform for both groups. Government efforts toward a consolidated agreement should also maximize the effective role that women and youth could play in this process. Bangsamoro groups must also embark deliberately and systematically on the task of achieving unity of purpose among the various revolutionary groups, civil society organizations, rebel supporters, and those who are duly elected or appointed in government service. Like the government and political leaders, the key leaders of the Bangsamoro struggle also need to win the trust of Mindanawons by convincingly manifesting their sincere efforts for peace, and presenting credible representatives to the public as they do so.
Explore and adopt localized security strategies, an innovative approach that vests responsibility for security management on the smallest units of government. The local PNP, working closely with LGUs through the Office of the Local Government Operations Officer, could embark on community policing where constituents participate actively in formulating localized security plans and implementation strategies for their respective communities. To support this overall strategy of making peace a governmentwide concern, the following further initiatives should be undertaken: Harness local communities both in the implementation of peace, especially the resolution of rido-based conflicts in local areas, and in monitoring development programs that are being implemented by various agencies.
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Pursue the GRP-NDF peace talks relentlessly. The window of opportunity enjoyed by the new government could permit confidence-building that would facilitate finding an agreeable eventual settlement. Arrive at a compromise formula that clearly defines power and wealth sharing schemes between and among the guardians or keepers of the three major contending ethnic groups. Only then can the peace negotiation move forward. Experience and lessons from other peace settlements have shown that no peace agreement is self-implementing. And no peace formula can be sustainable until the narratives of all major stakeholders are included. Involve the LGUs and religious leaders in mediating local conflicts, necessary to arrive at acceptable consensus, particularly on settling rido. In many instances, the mediation of the local leaders is more effective in bringing together the warring parties/ clans to settle their differences through the traditional conflict resolution. Have women work alongside men and play major roles in all aspects of peacemaking, peacekeeping and peacebuilding. Although gender may not be central to the conflict, it is certainly central to its resolution and to achieving a sustainable peace. In the near term, the following initiatives would need to be pursued in pushing the strategy of a unifying peace for Mindanao: Consolidate the gains and lessons of the 1996 Final Peace Agreement and establish a common government platform in approaching the issues of (1) autonomy (self-governance), (2) ancestral domain and (3) cultural and religious identity of the Bangsamoro peoples and the indigenous peoples in Mindanao. Firm up and implement a coherent and comprehensive peace policy vis--vis the full implementation of the 1996 Final Peace Agreement soonest, while ensuring harmonization or convergence of the 1996 FPA with the results of the peace negotiation between the GRP and the MILF. Consider the establishment of a Historical Truth and Justice Commission as an avenue to secure satisfactory closure to the Mindanao conflict. Through it, valid historical narratives can be articulated in pursuit of a common understanding that will in turn pave the way for reconciliation. A by-product could be a comprehensive review and consensus account of Philippine history that includes and gives long-warranted space for the Moro and Lumad histories, to be disseminated widely, especially within the national education system. Ensure final disposition of arms and mainstream former combatants as productive members of society
Restore justice and rule of law by reforming the justice system into one that is widely perceived to be fair, responsive and equitably accessible. Review and rectify the existing divisive and discriminatory practices in the justice system, including certain prevailing practices in lawyering, judging, and meting punishment that are biased against women and girls, ethnic groups, or particular classes of peoples. This will entail faithful application of the appropriate laws, and capacity-building for the people concerned. Adopt a policy of legal pluralism that accommodates and integrates legal systems based on Islam, indigenous and traditional practices and other religio-legal systems. To the extent permitted by law, some flexibility must be provided to permit alternative lawyering, especially when minorities are involved. A mechanism must be instituted to redress individual and collective cases of injustice by way of indemnifications of victims in various creative and meaningful forms of transitional justice and/or restorative justice. Review and revise as may be necessary, laws and policies on the peace and order councils (POC) in order to professionalize, equip and empower all POCs at all levels. Institutionalize consultation and communication mechanisms in the service of peace negotiation. The following specific initiatives would further support this overall strategy: Institute measures and standards that will professionalize law enforcers and make the justice system accessible, fair and common citizen-friendly
Source(s): http://www.southchinasea.org http://wikipedia.com
Strengthen the Katarungang Pambarangay (KP) justice mechanism; recognize and adapt traditional/alternative mechanisms to rido resolution in local areas; and/or institutionalize similar indigenous justice mechanisms Ensure the integration of a gender perspective in all the above initiatives and the systemic capacity to implement gender-responsive justice.
comprising Mindanao society; Participation (inclusion) that would afford every Mindanawon to have an opportunity to be heard and to take action on decisions that shape his/her future; Parity (equality) that would eliminate the divisive biases and prejudices that the conflicts have engendered through the years, and Reconciliation of conflicting parties, clans and communities that would allow the much needed social cohesion to take root among the protagonists in the Mindanao drama. Deliberately address discrimination and prejudice through the educational system. Address cultural biases in primary and secondary schools, while providing Mindanao students at tertiary levels, with the intellectual tools to understand the roots of prejudice and the ways out of it. The recommendations from the review of the Comprehensive Mindanao Education Program (CMEP) provide a good starting point for this effort.
Nurture and firmly entrench a culture of peace among all Mindanawons. Reverse and transform the negative culture of separation, discrimination and exclusion fomented by years of war and conflict into a positive culture of peace, with the following operative words: Partnership (stakeholdership) that would ensure joint and collective efforts across the ethnic groups
Formulate a more sustainable and effective Disarmament and Re-integration program that would include a host of initiatives and activities such as:
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The following initiatives would support this overall strategy: Integrate peace education in the official curricula at all levels and ensure cultural sensitivity of textbooks, teaching methods, school calendars, and even the physical landscape Radically revise all educational and communication practices and references to curtail the pervasiveness of gender biases, false stereotypes, misrepresentations, and neglect that not only divides people but also demean some groups. Review and revise the Comprehensive Mindanao Education Program (CMEP) to be instrumental in establishing a culture of peace and gender sensitivity. Strengthen Mindanaos International Humanitarian Law (IHL) Peace Studies Programs both in the baccalaureate and graduate levels Establish platforms for cultural and religious dialogues and exchanges (both inter- and intra-) at all levels Institutionalize indigenous conflict resolution and healing sessions in communities Establish a community information and communication plan in every municipality. Institute a consultative and transparent mechanism to discuss issues of peacekeeping, peacemaking and peacebuilding in every community.
The following initiatives would further support this overall strategy: Complete the reconstruction and rehabilitation of all conflict affected areas. Undertake resettlement of the IDPs and wholesale reconstruction in all former conflict areas, covering local infrastructures such as farm to market roads and irrigation systems, and restoring and improving delivery of basic services such as basic education and primary health care. Adopt a policy that ensures all development projects and programs in conflict-affected and vulnerable areas are conflict and gender sensitive, viewed and assessed through a peace and gender lens. Integrate reconciliation and healing among people in conflict-affected areas in the restoration of peace, employing appropriate psycho-social interventions. Establish centers for trauma healing and reconciliation in strategic places, similar to those established under the Truth and Justice Commission in South Africa. Strengthen the mandates of the LGUs toward consolidating their competence and primary jurisdiction on issues of peacekeeping, peacemaking and peacebuilding in all former areas of conflict. Secure a quantum amount of development assistance (say 5-10 billion dollars) for a 10-year affirmative action public/ private investment program for Mindanao towards the complete reconstruction and rehabilitation of all conflict areas up to 2020 (i.e., a genuine mini-Marshall Plan for Mindanao). Ensure that rehabilitation takes into account the risks posed by natural and man-made hazards. Design a gender-sensitive human security plan for each community and allocate at least 10% of its IRA for the purpose. The security plan must also be cognizant of and address the concerns of hazards to minimize risks on people and the creation of new norms of conflicts. Undertake focused initiatives in Bangsamoro areas directed at enlivening the local economy and closing the economic gap with progressive areas in Mindanao Mobilize peoples participation in meeting the Millennium Development Goals (MDG) in the whole of Mindanao, but especially in MDG-lagging areas. Widen partnerships for peace in Mindanao. Assert that peace in Mindanao is not something that government alone could provide or achieve, but can only be secured through the collective and collaborative efforts of government with the people, through the private sector and civil society organizations (CSOs). The private sector can invest in peace; CSOs can advocate for peace. The former is exemplified by the Unifrutti Companys decision to invest in a major banana plantation project (La Frutera) in Datu Paglas municipality in Maguindanao (see Box 7-2 in Chapter 7). There are more examples of advocacy work for peace being done concretely by CSOs from within the Christian, Muslim and Lumad communities.16 Government, especially units of government working in Mindanao (MinDA, OPAPP, RDCs, LGUs) must pursue and enrich such multistakeholder partnerships. Recognize and tap the role of the international community in securing and sustaining peace in Mindanao. The entire Islamic world and indeed the entire trading world, have a stake, in varying degrees, in a peaceful and developed Mindanao. Consistent with this, there has been strong international interest in the Mindanao peace process, manifested in participation of key foreign partners in facilitation or monitoring the peace process through the International Contact Group (ICG) and the International Monitoring Team (IMT), and/or through provision of resource support to the effort to secure peace and development in Mindanao, via official development assistance. Pursue efforts, in support of the above international partnership strategy, to reframe the BIMP-EAGA Agreements to include the following:
Open borders among participating regions of the littoral states to enhance and facilitate not only trade and mobility of people, but also the emergence of a new common and inclusive identity that is based on the Sulu-Celebes Basin. Strengthen the cooperation and partnership among the littoral states to jointly manage and protect the rich offshore resources in the area, including and especially the Coral Triangle. Strengthen partnership among the BIMP states, and between them and the external users of the sea lanes, in the over-all strategy of securing the sea lanes, the ports and general port-to-port safety. Forestall potential new threats to peace and security, particularly conflicts and disasters arising from environment and natural resources mismanagement.
Safeguard environmental security via sound environmental management, forward looking climate change adaptation, and disaster preparedness and management. Mindanaos future development cannot be pursued at the expense of environmental integrity and judicious natural resource management, without which new conflicts over resources are likely to arise, and threats from environmental disasters are likely to exacerbate. It is thus critical to future peace and security in Mindanao that future development be pursued with the ecosystem as basis and unit for planning (see Chapters 3 and 7). Specific initiatives in pursuit of the above include: Integrate deliberate climate change adaptation measures in local development plans and comprehensive land use plans Formulate disaster risk preparedness reduction and management plans as part of local planning, with defined roles for various stakeholders including government, private sector and communities. Closely regulate extractive industries, such as mining, forestry and fisheries, to ensure responsible management of environmental and social impacts resulting from their respective operations. Encourage sound environmental management by communities particularly in environmentally sensitive areas such as uplands and coasts, through community-based resource management (CBRM) schemes and payments for ecological services (PES) mechanisms (see Chapter 7)
In the end, it is the attainment of a unifying, lasting peace that underlies, first and foremost, the quest for a Mindanao that is both One and Number One within twenty years. Reaching it hinges on us Mindanawons ourselves reaching out together to attain it.
Source: World Wildlife Foundation (Coral Triangle Priority Place Boundary) 16 The Mindanao Peaceweavers, Kadtabanga Foundation, Mindanao Commission on Women, and Panagtagbo Mindanao are specific examples from the Christian, Muslim and Lumad communities, respectively.
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human Development and social cohesion: A Mindanao Free of Want, Free of Fear
CHAPTER 6
17 The nationwide average poverty incidence of 33 percent is for 2006. The methodology for calculating poverty incidence has been changed in 2009; thus the 2009 figures subsequently cited are not comparable to this. 18 The HDI is a composite measure developed by the United Nations Development Programme (UNDP) to help assess a particular nations quality of life for its citizens in terms of three calculable facets of human well-being: purchasing power, a long and healthy life and the access to knowledge 19 However, given low per capita incomes in the case of ARMM, this may be more indicative of shared poverty rather than shared affluence. 20 Among these are the informal quick survey and the Focus Group Discussions undertaken for this Mindanao 2020 planning exercise, as well as the far-reaching Konsult Mindanaw and Dialogue Mindanao surveys that were undertaken in the wake of the failed GRP-MILF Peace Negotiations in 2009. 21 Global attention was first drawn to the concept of human security in the United Nations Development Programmes 1994 Human Development Report. 22 High Level Task Force on Social Cohesion (2008).
Figure 6-1a Human Development Index Map of Mindanao, 2006 Table 6-1. Gini Coefficients, Mindanao Regions vis-a-vis National, 1991-2006
ArEA Philippines Region IX Region X Region XI Region XII Caraga ARMM 1991 0.4680 0.4057 0.4380 0.4348 0.4050 0.3197 1994 0.4507 0.3861 0.4157 0.4114 0.4280 0.3125 1997 0.4881 0.4679 0.4948 0.4500 0.4535 0.4381 0.3489 2000 0.4822 0.4732 0.4794 0.4318 0.4631 0.4118 0.3171 2003 0.4605 0.5197 0.4817 0.4574 0.4774 0.4303 0.3578 2006 0.4580 0.5054 0.4806 0.4225 0.4006 0.4452 0.3113
Source: National Statistics Office (NSO) except for 1997 and 2000 which were taken from the National Statistical Coordination Board (NSCB).
Table 6-2. Income Ratios of Top 10/20% to Bottom 10/20%, Mindanao Regions vs. National, 2006
Area Philippines Region IX Region X Region XI Region XII Caraga ARMM Top 10%/Bottom 10% 18.9 24.3 19.6 15.0 12.8 17.0 7.5 Top 20%/Bottom 20% 11.0 13.5 11.4 9.0 7.5 9.4 4.6
Source: Philippine Human Development Report 2007/2008
were listed among the bottom 10 with lowest average income nationwide. But by 2006, the list had expanded to 7, with the addition of Basilan, Maguindanao, and Zamboanga del Norte. Tawi-Tawi is at the very bottom of the list for the entire Philippines, with an average per capita income of only PhP6,664 in 2006. In the same period, average income per capita in Mindanao fell in real terms from PhP21,841 in 1997 to only PhP 19,073. Disparities were very wide; average per capita income in Sulu was PhP7,594 in 2006, while Davaos corresponding figure was PhP27,998. Income and consumption disparities are particularly wide in Mindanao. Lanao del Norte registered the highest consumption inequality in the country in 2003, with the richest 10% accounting for 41.4% of the consumption, while the poorest 20% accounted for only 5.6%. Zamboanga del Norte had the second highest consumption inequality in the country in 2003, with the richest 20% accounting for more than half of the provinces level of consumption, while the poorest 20% accounted for only 6.3% in 1997. The complexity of the challenges facing Mindanao may be discerned from wide variations and apparent paradoxes
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in reported human development indicators. For example, ARMM provinces, while among the poorest, also posted low levels of consumption inequality, with Sulu posting the lowest consumption inequality in the country. With worst poverty accompanied by lowest inequality, the picture that emerges is one of equity in adversity. The state of health in Mindanao is generally poorer relative to the rest of the country. Average life expectancy in Mindanao is shorter, with the average Mindanawon expected to live 65 years, against a national average of 70 as of 2006. This may be attributed to relatively lower access to health care, and vulnerabilities caused by armed conflict, hunger, unsafe living conditions in degraded lands, and/or criminality in uneven peace and order conditions. In 2006, five out of 10 provinces with the lowest life expectancies nationwide were Mindanao provinces, all of which are in the ARMM. There is wide variation within Mindanao alone: Sulu registered the lowest life expectancy of 55.5 years in 2006, while Zamboanga del Norte posted the highest at 70.4 years. Nonetheless, there has been substantial improvement in life expectancy since 1997, when the average was only 62.4 years. This could be reflective of a significant improvement in the Mindanao health situation within the decade, as well as reduced vulnerability to armed conflict. But even as Zamboanga del Norte and Surigao del Norte (as top performers in Mindanao) registered life expectancy increases of 10-15 years between 1980 and 2006, Tawi-Tawi and Sulu saw average life expectancy decline by 10.6% (PHDR 2009). In fact, these were the only provinces where life expectancy declined among all provinces nationwide. Maternal and infant mortality rates are high in Mindanao, where women have the highest fertility rates in the country, averaging 5.0 children per woman. Infant mortality rates (IMR) are high relative to the national average especially in far-flung regions in Mindanao. High maternal mortality rates (MMR) are also prevalent, and is attributed to fertility rate, average age at first delivery, birth spacing and the over-all access of women to reproductive health services. In ARMM, only 16 out of every 100 women had births attended to by health professionals. This also reflects the fact that Mindanao LGUs employ the lowest number of doctors. Compared to the national average of 2,943, Mindanao had only an average of 90 LGU-employed doctors as of 2003. Parts of Mindanao, already disadvantaged in education as it is, are seeing further setbacks in key education indicators. In 20062007 the elementary school Net Participation Rate (NPR) for Mindanao stood at 78.5% which is well below the national NPR of 83.2%. Zamboanga del Norte, Tawi-Tawi, North Cotabato, and Davao Oriental registered severe drops of 10 percentage points or more in basic enrollment rate. Despite the gains of at least 9 percentage points by Maguindanao and Surigao del Norte, the bottom figures for most of Mindanao compare badly with Benguets 76.6%, Rizals 73.9%, Cavites 73.7%, and even Batanes 65.5% and Abras 64.7%. Six out of ten provinces with the lowest high school graduate ratio are from Mindanao, even as the average high school graduate ratio in Mindanao improved from 37% in 1997 to 45% in 2006. The six provinces are Sulu, Sarangani, Davao Oriental,
Zamboanga del Norte, Tawi-Tawi and Basilan. Sulu continues to be the province with the lowest high school graduate ratio, but its value slightly increased to 23.1%. On the other end, Misamis Oriental continued to register the largest high school graduate ratio among the Mindanao provinces, with its value increasing from 54.5% in 1997 to 62.9% in 2006. Mindanao women are relatively more disadvantaged, and need particular attention in the areas of economic opportunities, reproductive health, political participation, education, and even basic services such as water and power. Among the Mindanao population, it is women in particular who struggle in visceral ways with poverty, unemployment and underemployment, along with lack of access to basic social services such as health and education. On top of these basic difficulties, they must contend with constant violence in their lives, especially in but not limited to the politically unstable parts of Mindanao. Violence against women and children (VAWC) is an identified major social problem that has been further exacerbated by armed conflict. The most common form of violence against women is physical abuse. Rape is second, followed by incest, illegal recruitment, and involuntary prostitution. Even as violence against women has gained visibility as a public policy and public health concern, reporting of such cases remains dismally slow. The culture of silence in conservative, rural societies has prevented government from capturing the gravity of the situation. Mindanao has 8 out of the 10 provinces with lowest gender sensitivity and equality rankings nationwide. Parts of Mindanao had the lowest Gender-related Development Index (GDI), whichmeasures the inequality in the achievement of women and men based on life expectancy at birth, educational attainment and standard of living. GDI islow in the ARMM compared to other Mindanao provinces, posting an average of 0.449. Sulu province is again lowest in this measure for the entire country, with a GDI of 0.322. Major threats to human security persist in Mindanao. Six Mindanao provinces were deemed to be most critical with respect to human security concerns, namely: Tawi-Tawi, Sarangani, Maguindanao, North Cotabato, Sultan Kudarat, and Sulu. Table 6-3 presents baseline human insecurity indicators of these provinces. Fear is the natural consequence of lack of human security in Mindanao, and apart from the reasons cited earlier, has more localized sources such as clan conflict (rido), kidnapping, drugs trafficking, and militarization around big industries, plantations, and mining operations. A number of political families both Christians and Muslims reportedly maintain arsenals of various firearms and stacks of ammunition, and openly flaunt the use of these firearms by their private armies. While purported to provide security for politically and/or economically powerful families, they have also become sources of insecurity for ordinary people in the communities where these families rule. Fear of natural and man-made disasters that lead to destruction of life and property and to forced displacement is also common, especially among those who live in delicate environments. Caraga, Northern Mindanao, the Zamboanga Peninsula, Davao
Region and Southern Mindanao regions are particularly prone to environmental conflict. The wanton exploitation of natural resources also sows fear among the populace as it is often accompanied by militarization. Consultations among rural communities attribute lack of peace to the issues of environmental destruction, land-use and management, and land ownership. Lumad farmers, professionals, and tribal leaders lament that exploitation is done in their ancestral domains, aggravated by knowledge that many of the owners of the involved corporations are not from Mindanao. The direct victims of violent conflict are women, children and the elderly. More than half of the internally displaced persons (locally referred to as bakwits) are women. The impact of war on children can be seen in the 25% school dropout rate in ARMM, or three times the national average. Psychological trauma on children is also a silent but potentially damaging consequence of the war in Mindanao that will be manifest in the long-term. Moreover, an increasing number of rebel fighters have come from the ranks of children dropping out of school. Meanwhile, the adverse impacts of physical displacement on the elderly are readily apparent.
negotiators. The ongoing capacity building and planning for development assistance to conflict-affected areas are likewise helping build trust. More importantly, there is strong and unprecedented support by and participation of civil society organizations in the peace process. In general, there appears to be a better appreciation of the roots of the conflict on both sides of the negotiations. Mindanaos social fabric is impaired by feelings of offense, hurt and consequent mistrust that have persisted and grown through time among various groups, transcending cultural, religious, ethnic and socio-economic lines. As mentioned earlier, these hurts are traceable to historical injustice, gender biases and prejudices, discrimination, dispossession, neglect, insult, misrepresentation, labeling, invisibility and ostracism. Forms of discrimination range from non-access to governments basic services to unfair treatment in the workplace to militarization. Past decades have witnessed prejudice-driven actions piled on top of earlier acts of dispossession, neglect, misrepresentation, insult, and ostracism particularly in the areas that have been under Islam for at least 4 centuries, and in the increasingly constricted homelands of the Lumad. These historical injustices are commonly seen to have emerged from the migration from Luzon and Visayas in the early part of the 20th century, and from the discriminatory administrative policies of the Spanish and American colonial and Philippine Commonwealth governments. The social divides in Mindanao are further aggravated by government policies and deeply-rooted cultural biases expressed by Filipinos living in other parts of the Philippines, particularly in the National Capital Region. Deep resentments were fomented by Luzons seeming premise that Mindanaos resources can be handed out to migrants in the early and mid 20th century irrespective of who had prior occupancy of the land and that policies and programs can be planned and enacted at the center without consultation with Mindanao communities. Ordinary Mindanawons express confusion on the positions taken by parties on various sides of the Mindanao conflict. Consultations have pointed to the diversity of views, actions, and pronouncements of the different agencies of government in dealing with conflict and rebellion. It had been observed that government peace panels had in the past taken one approach while the military establishment took another track, even as Congress lamented being ignored, local governments felt bypassed, and the Office of the President claimed nonintervention. This had prompted a clamor for sincerity manifested in consistency and coherence of actions from the various instrumentalities of government. In a similar vein, people have expressed confusion on the positions taken by the different Moro groups and their supporters. The general populace is not clear on the positions of the MNLF, MILF, and other clans, organizations, and personalities involved in the conflict. Some register grave concern over the infighting between and among different subgroups of the Bangsamoro population. Even NGOs are seen to be divided for reasons not clear to ordinary people.
23 Ibid. 24 Ramiro (2000), Governance and Development in Mindanao, p.345 25 Bacani (2007), The MNLF and MILF Peace Tracks: Prospects and Challenges.
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Mindanawons have widely expressed26 a high level of mistrust directed at political leaders at the national, regional and local levels, perhaps to an extent now overshadowing historically rooted mistrust for those who abide by other faiths, cultural practices, and language groups. The mistrust for leaders is manifested in recurring calls for greater sincerity and public accountability not only on the part of the government but also on the Moro Islamic Liberation Front and their supporters. Through the years, the conflict situation in central Mindanao, parts of the Zamboanga Peninsula and the Basilan-SuluTawi-Tawi sub-region have approximated conditions of civil war. As such, Mindanaos safe and prosperous areas are inevitably linked in the public eye to the dangerous and poverty-stricken areas inasmuch as civil war conditions precisely consist of stark contrasts in a divided land. This has induced people and leaders in some otherwise peaceful and stable areas to assume a stance of dissociating themselves from Mindanao, in an effort to avoid the stigma that affects all areas in the island group due to problems actually confined to limited areas.27 These further undermine the goal of social cohesion to the extent that they make the achievement of a unified Mindanao even more difficult when the basic ingredient of belongingness is absent. Large numbers of Muslim Mindanawons have migrated out of Mindanao over the past decades. Both poverty and armed conflict have impelled hundreds of thousands of peaceful Muslims to leave Mindanao and establish trade-based communities in Luzon and the Visayas, or leave the country altogether. The Muslim diaspora is spread all over the Philippines, with mosques now found in every province and city. The largest community is in Metro Manila, where Muslim traders have become especially visible in the pearl and DVD trades. Recent data indicate that such migration is a rapidly growing phenomenon. The National Commission on Muslim Filipinos has estimated that at least 20,000 Balik-Islam or reverts live in traditionally Catholic Luzon. Over 2 million Muslims are estimated to live outside of Mindanao, with a large portion of this population undocumented. A sizeable population called halaws who originated from the Western Mindanao islands had also migrated to Sabah to escape the 1970s conflict. Lumads commonly lament being left out of discussions, negotiations and agreements, and initiatives for Mindanao. For the Lumads in general, their concept of peace is equated with food adequacy, cohesive family and clan relations, and selfgovernance all anchored on their right for self-determination and land ownership. While the National Commission on Indigenous Peoples (NCIP) was established to address their concerns, consultations among Lumad respondents often lead to assertions that NCIP is weak and ineffective in attending to indigenous peoples ancestral domain claims. In some cases, it is perceived to even serve the interests of those out to exploit IP lands.
Seeds of Hope
Notwithstanding the above challenges, consultations consistently indicate that communities and individuals are eager to take part in peace building. 28 There has also been an observed shift in Mindanao peoples outlooks and attitudes through the years. Artists have volunteered to build peace monuments, music composers persistently sing of peace. Business interest groups have taken the initiative to invest in conflict affected areas, and vow to scale up such investments and experiment with even more innovative business models.29 Academics resolve to direct more relevant research efforts toward Mindanao issues. Parents resolve to teach their children respect for other groups. Muslim, Christian and IP women leaders have raised their voices in unison for peace and development. Individuals commit to learn the language of a neighboring tribe. Psychologists pledge to direct their attention to the care of children affected by war. And many NGOs express continuing commitment to work in difficult situations to provide direct assistance to communities. All these demonstrations of goodwill, manifested in numerous FGDs around the Mindanao regions, reflect a continuing hope in a Mindanao wherein peace and the general well-being is a common aspiration. Many communities have organized themselves to create and/or strengthen indigenous mechanisms to ensure the provision of economic and social services to their populace. In other cases, external actors have supported local institutions in order to hasten and support the implementation of development projects and to promote peace and conflict resolution strategies in waraffected areas. There are numerous examples of communities and organizations that have successfully addressed the issues that are rooted in the lack of peace. Project and program interventions that have been undertaken by civil society organizations toward peace-building may be classified according to aims, viz (CoronelFerrer 2005): Those that intervene directly in the conflict such as the prevention of the escalation of violence, strengthening confidence-building and facilitating dialogue and undertaking unarmed protection and prevention; Those that address the consequences of violence such as postwar reconstruction; and Those that work on the social fabric or ensure that institutional reforms are undertaken in order to reduce the negative impacts of conflict. A number of civil society organizations have undertaken initiatives that have strengthened inter-faith dialogue among Christians and Muslims in their respective communities.
For example, The Mothers for Peace Movement, composed of women from different ethnic and religious groups, has formed hundreds of peace circles in Mindanao. Women in these peace circles are trained to prevent, resolve and contain family and community conflicts. Consultations likewise indicate a pervasive sense of spirituality that informs the thinking and behavior of Mindanawons. Because religion has been a crucial aspect of cultural division, it is important to observe that inter-faith work for conflict resolution has been on the forefront of Mindanao social life. Religious leaders of all faiths continue to be highly regarded, and in large part, have committed to cross-cultural dialogue. This important role is generally assumed by these leaders within language, religious, and regional communities sharing common spiritual beliefs. Women have historically played important roles as peacemakers, peace-builders, and peace-keepers. Bangsamoro women effectively play the role of mediators in conflict situations. In the Arumanen Manubo tribe, women are sent to the enemy to settle conflicts. More often than not, women are successful in such negotiation processes and are able to prevent conflict from escalating, suggesting the important role they can potentially play towards securing resolution in the Mindanao peace negotiation process. 30 Children and youth are the primary stakeholders of any long term planning exercise, and will be critical instruments toward making Mindanao 2020 happen. Indeed, youth groups have been very forthcoming in organizing forums in support of the Mindanao 2020 planning exercise, and in responding to the quick survey to elicit a shared vision for Mindanao. In the course of the Konsult Mindanaw FGDs, they have pledged concrete initiatives at individual and collective levels for achieving peace in Mindanao. They have also made concrete contributions to the economic development strategies and thrusts described in the next chapter, through the FGDs in which they have participated. As a guiding principle, this Plan recognizes children and youth as strategic change agents, constantly proving to be effective gateways to the hearts and minds of adults within their own families and communities. Thus, they will have potentially powerful roles to play in the translation of Mindanao 2020 into reality.
Where We Want to go
Vision
In 20 years, Mindanawons would like to see: A Mindanao where no one is deprived where people are able to develop their potentials as individuals and as communities; build trust and solidarity across regions and diverse cultural identities; and live and work in full respect of the ecological and spiritual systems of which they are part and draw sustenance from.
Goals
The following goals define this vision of a Mindanao free from deprivation: 1. Good health and overall well-being among the entire population, where families enjoy easy access to responsive health care systems and financing that are appropriate to local contexts and cultures. Maximum access to quality, relevant, and culturally sensitive education for all, enabling people to affirm both local cultures and universal values, and gain knowledge and skills that are appropriate to real life and global challenges. Empowered communities that assert their distinct identities and share social values that promote the common good; provide opportunities for personal growth and oblige collective accountability; and possess the wherewithal to resolve internal conflict and inspire active participation in the wider public life. Enhanced geographic linkages that foster harmony and cross-cultural exchange among communities that recognize and respect each others differences; and help erase the distinction between the two Mindanaos by bridging the gap between depressed and vulnerable areas and dynamic growth areas.
2.
3.
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Targets
By 2016, Poverty incidence is down to 30% of families (from 32.5%in 2009) Income distribution is 5% better than the 2009 nationwide distribution, i.e., a Gini coefficient of 0.42. Average life expectancy in Mindanao has improved to 67 years. Elementary and high school enrollment and completion rates rates have improved by 50 percent over their 2010 levels. 85% of all barangays have functioning and amply equipped health centers accessible to all
26 These expressions of mistrust have emerged in the various consultation forums described in Footnote 4. 27 One such deliberate effort may be seen in Zamboanga del Norte, whose leaders prefer to dispense with the name Zamboanga and refer to themselves as ZaNorte instead, and rather than identify with Mindanao, prefer to situate themselves as South of Cebu. 28 These especially emerged in the Konsult Mindanaw FGDs all over Mindanao. 29 The Datu Paglas Model described in Box 7-2 in the next chapter is one such innovation that has intrigued policy analysts.
30 The massacre of a group of women and journalists in Maguindanao in November 2009 could be a major setback, however, as its implications regarding womens social status in the ARMM could impair the traditionally effective role of women in securing peace.
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Rely on community-led initiatives: Emphasize and maximize community-led approaches to poverty reduction and social upliftment. Assert gender sensitivity: Deliberately promote gender sensitivity and balance in all development and social protection concerns. Practice culture sensitivity and multiculturalism: Institutionalize and internalize cultural sensitivity and true multiculturalism in governance, education and development work. Promote cross-cultural exchange: Actively pursue crosscultural communication, exchange and collaboration, while maintaining and asserting distinctive group identities. Harness spiritual leaders: Systematically harness the role of spiritual and moral leaders and institutions in promoting human security and social cohesion. Provide meaningful roles for children and youth: Actively involve children and youth in development initiatives in ways that fully recognize and harness their potential intellectual and creative contributions.
Province
5.
6.
7.
8.
Infant mortality rate is down to 5 per 1,000 live births (from 7 in 2009 31). Maternal mortality is down to 80 per 100,000 live births (from 97 in 2009). 95% of households have access to safe water supply (from 80.5% in 2008). 80% of households have access to a sanitary toilet (from 67% in 2008) 95% of all barangays have properly equipped classrooms staffed with teachers. Net enrollment rate in primary school is 95% (from 82.5 in 2009-2010), and 60% in secondary school (from 46.2 percent in 2009-2010). Basic literacy rate (for 15-24 year olds) is 96% (from 94.4% in 2007 32). Annual population growth rate in is 2.0% (from 2.5% in 2009). DILG has issued a directive to LGUs to adopt distinctive Mindanao designs in public buildings, structures and facilities.
100% of all barangays have properly equipped classrooms staffed with teachers. Net enrollment rate in primary school is 100%, and 70% in secondary school. Basic literacy rate (for 15-24 year olds) is 98%. Annual population growth rate is 1.5%. Most localities project a distinctive Mindanao ambience seen in architectural and artistic designs of buildings, structures and facilities.
These strategies, along with specific initiatives that would translate them into action, are elaborated further below: Focus on attaining the MDGs and sustaining gains beyond 2015. Intensify efforts toward meeting the lagging Millennium Development Goals (MDGs) in Mindanao. Within the country, Mindanao has the most catching up to do towards attaining the Millennium Development Goals by the target year of 2015. The disadvantaged state of Mindanao in basic education and health indicators, discussed in Section I.B above, indicate that very basic human development interventions are required: provision of classrooms, teachers and textbooks, and of health centers, hospitals, health personnel, and medicines, all of which are in far short supply relative to requirements. Give special attention to IPs in the provision of basic social services. The Mindanao IPs particularly need special attention, as their education and health status tend to lag behind the rest of Mindanawons (see Box 6-1). This is due both to outright lack of facilities and lack of culture-sensitive interventions suited to IP cultures, beliefs and practices, with the latter causing some IP families to stay away from the schools and health centers even when available. Pursue education improvements through partnerships and community empowerment. The imperatives for education are well-known and well-understood, and are embodied in the governments education agenda (Box 6-2). The long-standing challenge, particularly in Mindanao, is in implementation and service delivery. As discussed further below, working through partnerships and community empowerment shall spell the difference in ensuring greater success than has traditionally been achieved with the past top-down conduct of human development initiatives.
By 2030, Poverty incidence is down to 16% of families. Income distribution is 12% better than the 2020 Mindanao distribution, i.e., a Gini coefficient of 0.35. Average life expectancy in Mindanao has improved to 72 years Elementary and high school enrollment rates are at 100 percent, with 90-95 percent completion rates. 100% of all barangays have functioning and amply equipped health centers accessible to all. Infant mortality rate is down to 1 per 1,000 live births. Maternal mortality is down to 30 per 100,000 live births. 100% of households have access to safe water supply. 100% of households have access to a sanitary toilet. 100% of all barangays have properly equipped classrooms staffed with teachers, and no child needs to travel more than 2 kilometers to the nearest school. Net enrollment rate in both primary and secondary school is 100%. Basic literacy rate (for 15-24 year olds) is 100%. Annual population growth rate is 1.0%. All localities project a distinctive Mindanao ambience seen in architectural and artistic designs of buildings, structures and facilities.
By 2020, Poverty incidence is down to 25% of families. Income distribution is 5% better than the 2016 distribution, i.e., a Mindanao Gini coefficient of 0.40. Average life expectancy in Mindanao has improved to 69 years. Elementary and high school enrollment and completion rates have improved by 75 percent over their 2010 levels 95% of all barangays have functioning and amply equipped health centers accessible to all. Infant mortality rate is down to 3 per 1,000 live births. Maternal mortality is down to 60 per 100,000 live births. 100% of households have access to safe water supply. 100% of households have access to a sanitary toilet.
2.
33 Examples are the PALMA Alliance, the Lanuza Bay Development Authority (LBDA) and the Allah Valley Landscape Development Alliance (AVLDA) described in Chapter 8.
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Box 6-1
Box 6-2
2.
3. 4.
5. 6.
Source: DepEd
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Make health care and health insurance accessible and affordable to all. The health agenda for Mindanao seeks to make health care and health insurance accessible and affordable to all (Box 6-3). As in education, success hinges on active partnership between the Department of Health and local government units to complement one another in promoting public health, especially in remote rural areas. Capacitate LGUs on appreciation, achievement and monitoring of MDGs. In education and health and in other human development and poverty reduction interventions, there is clear need for capacity building for LGUs, in order to (1) build stronger awareness on, appreciation for and commitment to the MDGs, which must be evidenced in appropriate budgetary allocations out of the LGUs 20% Development Fund; (2) enhance technical knowledge and skills required by the LGUs to properly identify MDG-related problems and appropriate responses thereto; and (3) equip them to design appropriate poverty monitoring and evaluation systems, for the purpose of proper targeting of interventions, and for guiding program improvements toward improved responsiveness to actual needs. Similar capacity building must also be made accessible to non-government partners in the work for human development and social cohesion, such as NGOs, POs, private sector, and communities. Develop, support and scale up new forms of public-private partnerships for social development. Formulate innovative and Mindanao-responsive modes of PPPs in the context of addressing poverty reduction and human development requirements, such as provision of health and education facilities and services. This strategy has nationwide applicability, but is of particular importance to Mindanao, where such partnerships will promote much-needed social cohesion. Beyond the most familiar PPP mode of infrastructure provision via build-operate-transfer (BOT) and related schemes, PPPs can refer to other collaborative arrangements between and among government and non-government entities, referring to both the private business sector and civil society. These are especially critical under conditions of resource constraints in the public sector, which has traditionally plagued Mindanao and the country as a whole. Identify and fill the service gaps where government agencies are unable to deliver on the social infrastructure. As a matter of policy, NGOs and peoples organizations (POs) must be regarded as partners and collaborators with the State, and on their own can themselves contribute to the provision of human development services where government reach is limited. Provide a strong enabling policy environment for fostering and facilitating PPPs of various forms as a governance priority. Chapter 8 discusses more fully the relevant policy imperatives in pursuit of this. Formulate a deliberate and strategic human resource development plan to support the requirements of emerging economic directions for Mindanao, under a close partnership among government (DepEd, CHED and TESDA) and the private
sector (through the local business organizations such as MinBC and local business chambers under the Philippine Chamber of Commerce and Industry). This is in recognition that both need one another to ensure that such a human resources plan would be responsive to the needs of the private sector, and at the same time supported with requisite resources from the public sector. Replicate successful LGU initiatives in providing ample health care facilities, services and financing arrangements to citizens through PPP, such as the Misamis Oriental health services program that won the 2010 Galing Pook Award. Emphasize and maximize community-led approaches to poverty reduction. Scale up and provide greater budget support to interventions that are based on and led by communities, such as the successful KALAHI-CIDSS. Communities and their local governments should be given a direct hand in problem identification, planning, program/project design and execution, particularly in addressing poverty reduction and human development requirements. They are well placed to identify their priority needs and needed interventions to address these needs. Pursuit of the MDGs is thus likely to have a higher success rate by vesting the responsibilities with local authorities and community players. Synergize efforts among local governments, NGOs/ CSOs, and religious organizations in providing and delivering social services. Since the MDGs are all-encompassing, the cooperation and synergies of more extensive, inclusive and active networks must be coordinated and harnessed to assume lives of their own beyond the MDG focus, with the entirety of Mindanao as their broad parameters, and under a longer-term perspective that goes beyond the MDG target year of 2015. Specific initiatives in support of the above strategy would include the following: Establish a policy to devote a given percentage of program budgets of national government agencies to communitydriven mechanisms, whereby funds may be downloaded directly to communities for interventions they themselves identify, design, and implement. Formulate a unified guiding framework for longterm poverty reduction in Mindanao, that ensures complementation of conditional cash transfer schemes, community-driven interventions and convergence initiatives (i.e., the key thrusts of governments anti-poverty program). Enrich and adapt to Mindanao conditions recently formulated roadmaps for the health and education sectors, namely the Department of Healths National Roadmap for the Health Sector (2011-2030) and the Department of Educations Comprehensive Mindanao Education Program (CMEP). Ensure that the components pertaining to Mindanao are attuned to the local cultures, and maximize community involvement in all efforts toward safeguarding
Box 6-3
Objective 2: Assure the Quality and Affordability of Health Goods and Services Provision of cheaper and quality medicines for all Licensing and regulation of equipment and establishments offering health services
Objective 3: Ensure Access To and Availability of Essential and Basic Health Packages Upgrading of health facilities into Basic Emergency Obstetrics Care and Comprehensive Emergency Obstetrics Care Centers Provision of essential health care packages in all health facilities Establishment of one (1) hospital per island municipality Provision of one (1) midwife per barangay Provision of one (1) doctor per municipality Establishment of one (1) hospital per geographically-isolated and depressed areas Provision of one (1) Botika ng Barangay per catchment area
Objective 4: Improve the Performance of the Health System Establish/strengthen the Inter Local Health Zones (ILHZ) with creation/reactivation of Local Health Boards (LHBs) Institutionalize the Mindanao hospital referral mechanism Well-coordinated Health Investment Portfolio and utilization of Province- wide Investment Plans for Health (PIPH) and Annual Operational Plans (AOP). Intensify capacity building initiatives to improve Public Funds Management with efficient and effective utilization of financial resources Strengthen/improve coordination mechanisms with various partners
Source: DOH
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public health and promoting basic education. For instance, indigenous healing practices and alternative medicine must form part of the health agenda, recognizing that traditional medicines from indigenous flora have been the object of aggressive research funded by multinational pharmaceutical companies. Local School Boards must be opened to wider community representation and participation, especially given the multicultural context in which basic education must be provided in Mindanao. Regularly finance and standardize community-based monitoring systems in all Mindanao LGUs for gathering data and statistics on relevant human welfare indicators at the local levels (especially the MDG target measures), to permit proper assessment of past interventions, and thereby inform and guide planning and intervention programs.
Ensure the undertaking of gender-sensitive planning and programming through the collection of sex-disaggregated data in all sectors. Integrate a gender perspective in the resolution of armed or other conflicts, such as through mainstreaming gender and human rights education in the training curricula of military and police personnel, and in colleges and universities. Adhere to gender balance in the appointments to all relevant justice, law, and security enforcement agencies, as well as in all bodies related to peaceful settlement of disputes and peace negotiations. As a short-term measure, it would be desirable to consciously include more women on both sides of the negotiating panels and their technical staffs in the ongoing peace negotiations with the MILF. Guarantee womens right to protection and security from all forms of gender-based violence, particularly rape and other forms of sexual abuse; and all forms of violence in situations of armed conflict through the following measures, among others: Codify, localize and enforce anti-VAW (violence against women) laws, and consistently apply penalties to offenders to ensure that all women shall be protected from all forms of violence. Provide facilities such as trauma or rehabilitation centers catering specifically to Mindanao womens peculiar needs toward healing from experiences of violence and abuse.
programs must be developed especially for educators and top administrators themselves; starting with helping them discover their own biases as expressed in their personal views and behavior, or as manifested in school policies. Cultural sensitivity has to be manifested in textbooks, teaching methods, school calendars, and even physical landscapes of schools. Actively pursue cross-cultural communication, exchange and collaboration, while maintaining and asserting distinctive group identities. Pursue and promote an environment wherein the various Mindanao peoples can actively reach out, communicate, understand each others cultural and religious perspectives, and find unity in their shared aspirations as well as their shared problems and challenges. With deep-seated differences among peoples that trace a long history and find their origins in religion and culture, Mindanao will always be a tapestry of multiple cultures and religions. Cultural homogenization is not a viable objective and outcome even in the long term. Nor is cultural isolationism, which only foments secession and national fragmentation. Cross-cultural dialogue and exchange can happen even as the respective peoples retain and enrich their distinct cultural identities. The common approach must be one of highlighting commonalities while identifying differences that may provide opportunities for complementation. Facilitate communication, exchange and collaboration among the peoples of Mindanao particularly towards recognition of their common stake in the Mindanao ecosystems (Chapter 3). These ecosystems defined on the mainland by watersheds and river basins are the inevitable amalgam that will draw people together through their shared stewardship of their natural surroundings. As environmental pressures threaten livelihoods and the very lives of inhabitants, cultural and political differences are trivialized and are more easily put aside in favor of the more prior concern of long-term sustainability and ultimately, survival. It takes communication and active exchanges among people otherwise divided along cultural and political lines, to recognize and appreciate the criticality of these shared challenges. Systematically identify, recognize, consult, support, and strengthen the peoples internal mechanisms for establishing identity, dignity, and psychosocial equilibrium. Identity politics can be directed into liberating, progressive directions by institutionalizing respect for local units of identity and organization e.g., family, barangay, tribe, peace and development community, ecosystem domain, and so on. The same local organizations could very well serve the purpose of other initiatives, like community-based needs analysis, relief distribution, conflict resolution, reintegration of ex-combatants, conduct of public rituals, and peace management. Specific initiatives in pursuit of the above would include the following: Significantly expand and make more deliberate the scholarship programs for large numbers of young Mindanao men and women, especially those from less-endowed Muslim and Lumad communities, to study in leading
institutions of learning within and outside of Mindanao, including overseas. Undertake these programs in tandem with those that encourage youth from Luzon and Visayas to study in Mindanao with the parallel objective of promoting cross-cultural understanding. Foster regular forums and maximize the productive and strategic use of festivals for intercultural or interreligious dialogues, cross-regional exchange, gender sensitivity programs, and intergenerational sharing. Institutionalize and incentivize the assertion of Mindanaos beauty and rich and diverse cultures through various modes of artistic expression. A tangible measure would be to showcase Mindanaos distinct cultures through conscious application to architectural designs of public and private facilities like buildings, lampposts, gateways, etc. Achieving a distinctive Mindanao ambience in this manner would also serve the purposes of (1) instilling stronger pride of belonging and sense of unity among Mindanawons, and (2) attracting greater tourism and all the positive economic benefits associated with it.
Deliberately promote gender sensitivity and balance in all development concerns. Protect and uphold the welfare of Mindanao women, while fully tapping their potential contributions to nation-building and securing peace and development in Mindanao. The women of Mindanao need special attention, be it to safeguard and promote their welfare, or to harness their full potential contributions in securing peace and development. This is particularly important when taken against the backdrop wherein Mindanao women have long been at a greater disadvantage vis-vis their counterparts elsewhere in the country. The concern for gender sensitivity and balance would be served in a number of ways, including through appropriate policy reforms, program and project design, budget allocation and institutional development. Specific imperatives and initiatives in pursuit of the above would include the following: Increase womens access to capital and financing facilities, information, technology, technical assistance, and livelihood opportunities, in order to heighten levels of economic opportunity and financial sustainability for Mindanao women. Allocate a substantial portion of the Gender and Development Budget (GAD) for gender programming and women-led projects directed to marginalized Mindanao women, including Lumad and Muslim women. Deliberately increase the recruitment and training of women in the police force, forensics and medico-legal, and legal services and such other services availed of by women who are victims of gender-related offenses. Provide incentives to strengthen programming, production, and image-making that appropriately present womens needs, issues, and concerns in all forms of media, communication, and information dissemination and advertising.
Systematically harness the role of spiritual and moral leaders and institutions in promoting social cohesion. Deliberately engage spiritual and moral leaders, whether as individuals or as organized groups, in the effort to secure a cohesive Mindanao society. Mending the social fabric and rebuilding relationships often requires tapping spiritual energies from different religious traditions, and not only technical assistance and funding support. The Bishops-Ulama Conference, for example, has provided a venue for Muslim-Christian dialog through the conduct of Konsult Mindanaw, which obtained a wide array of Mindanawons views on the peace process. The National Ulama Conference and a similar organization of aleemat (female teachers), both organized through the efforts of the Philippine Council for Islam and Democracy (PCID), promise to be important bodies for consensus seeking among peace-loving Muslims through their spiritual and intellectual leaders. Organize and sustain an intensive program for intra-faith reflection and renewal, whereby people within the same faith may reflect on their participation in the sources of conflict and find value in admitting their own culpability, while at the same time picking up the pieces and moving forward in renewal. This can initiate a process where people can reach a point of offering or asking forgiveness, paving the way for conclusive resolution of long-standing conflicts a prerequisite for achieving social cohesion. Actively involve children and youth in development initiatives in ways that fully recognize and harness their potential intellectual and creative contributions. Provide mechanisms for sustained involvement and mobilization of young boys and girls throughout the implementation of Mindanao 2020. Children and youth are the primary stakeholders for all sustainable development initiatives,
Institutionalize and internalize cultural sensitivity and true multiculturalism in governance, education and development work. Reflect the cultural diversity of Mindanao in the staffing of government institutions directly involved in planning for the future of Mindanao, including MinDA, NEDA, LGUs and even donor agencies. The impetus for operationalizing the vision of human security and social cohesion should come from the government itself, particularly the development institutions espousing these ideals. The appropriate combination of diverse expertise from varying cultural perspectives enhances a holistic appreciation of the Mindanao situation that would in turn make these institutions more effective. Build cultural sensitivity into the respective programs of sectoral line agencies, such as in the design of roads, bridges or school buildings by DPWH; design of ports and airports by DOTC; the nature of feeding programs undertaken by DSWD, farming systems promoted by the DA, scientific research fostered by DOST, and so on. Integrate peace education promoting cultural sensitivity and solidarity into the formal, non-formal and informal education curriculums (see Chapter 5). Multicultural sensitivity
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particularly those with a long-term perspective, and certainly for Mindanao 2020. Thus, the plan must be owned by the youth in ways that secure their transition into leadership roles in the plans implementation over the next 20 years. Consciously and deliberately involve children and youth in initiatives for human security and social cohesion. Children and the youth have proven to be effective and persuasive advocates for behavioral and even attitude change in adults, especially within their own families. Thus they can be very effective change agents to induce transformation not only among themselves, but more so transformation in the attitudes and behavior of adults, through (among other things) their intellectual and artistic expressions in support of desired social change. In particular, cross-cultural exchange and dialogue could be best facilitated with the involvement of children and youth, among whom achievement of agreement and consensus tends to be easier. Like women, they could similarly play a key role in facilitating conflict resolution, including in the context of the peace process itself. Nurture constructive activism and pro-activity among young Mindanawons to become active stakeholders in sustainable development. The role of young men and women in social transformation has long been demonstrated through the nations history. Organized youth groups have involved themselves in a variety of issues such as students rights, graft and corruption and change in governance, among others. A vigilant youth constituency would also ensure that services for and concerns of the youth are mainstreamed in development plans. In recognition of the above, the following initiatives, among others, must be undertaken: Institutionalize youth representation in all major governance and development bodies, mechanisms and processes, including local development planning, the peace process, climate change adaptation planning, and others, with equal opportunities given to young men and women alike. Support and encourage creative and artistic initiatives among the youth, including those who are out of school, which will bring advocacies for poverty reduction, environmental protection and social cohesion to wide public attention. Expand current mechanisms harnessing volunteerism among the youth, such as the VIDA program (Box 6-4) of the Philippine National Volunteer Service Coordination Agency (PNVSCA). Resource support for such volunteer programs deserve to be scaled up, given the multiple benefits they yield not only for the youth volunteers but to society as a whole. Wide experience worldwide has shown that volunteerism does not only lead to skills development,
but also fosters involvement and character development among the volunteers, while directly benefiting client communities receiving them. In the end, the upliftment of Mindanawons lives lies in the hands of Mindanawons themselves. It will entail communities taking charge of their own destinies, and stakeholder groups working together in principled partnerships to achieve the shared aspiration for a Mindanao where all are fulfilled, and none are deprived.
Box 6-4
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Economy and the Environment: In Quest of a Dynamic, Inclusive and Green Mindanao Economy
ChAPTeR 7
of the economy, even exceeding the latter in 2009 (Figure 7-2) Mindanaos inter- and intra-regional development has historically been largely fragmented in character. The prominence of plantation enclaves and the historical lack of road interconnections among the regions had contributed to this fragmented development.35 As a consequence, extremes of economic performance are found within Mindanao, and disparities are very wide. In 2008,
Figure 7-1 Sectoral Shares in the Mindanao Economy, 2008
Agriculture has traditionally been the dominant sector propelling the Mindanao economy, although the services sector has grown rapidly in recent years. There was a slight shift in the structure of the Mindanao economy between 1995 and 2008, with agricultures Source of primary data: NSCB share declining by 6 percentage points while services and industry shares each increased by 3 percentage Northern Mindanao (Region X) was the fastest growing region points. Still, the Mindanao economy has remained predominantly in the country and the biggest regional economy in Mindanao based on agriculture and services, with the latter dominated by (Table 7-1). At the other extreme, ARMM had the second slowest trade, followed by transportation, communication and storage growth nationwide (next only to the Cordillera Administrative (Figure 7-1). Region) and the slowest in Mindanao; it also contributed the least Mindanao has seen little industrial development through the decades, with industry sector employment showing little expansion. Mindanaos industry sector is mainly driven by the manufacturing sub-sector, dominated by food manufacturing (agricultural processing and fish canning), with construction a far second. Mining is seen to have strong growth potential, given abundant mineral resources in Mindanao. A larger portion of the Mindanao labor force has been absorbed by the services sector whose employment share increased from 33.1% in 1994 to 42.3% in 2006. From 1995 to 2006, average annual employment growth in services (4.1%) far outstripped that in agriculture (1.8%) and industry (1.2%). A great reliance on extractive industries (logging, fisheries, mining) over the years has taken a heavy toll on the Mindanao environment. Watershed degradation has been a major threat to sustainability, as have depletion of fisheries and adverse environmental impacts of mining activities like toxic chemical runoff and biodiversityPNVSCA Website www.pnvsca.gov.phBox 7-1) and threats. Lake Lanao (See From the the Liguasan Marsh have become prominent symbols of the stresses imposed by economic activities on Mindanaos natural environment. In the period 1995-2009, Mindanaos GDP grew at annual average rate of 4.2%, falling well short of the Mindanao 2000 Development Framework Plan target of 7% sustained annual growth. More recently, Mindanaos economy, which contributes 18% to the national economic output, has kept pace with growth in the rest to the Mindanao economy. Mindanao has been a net contributor of savings to the rest of the economy. Deposits to the banking system far exceed loans granted (Figure 7-3), indicating that the banking system effectively withdraws savings out of Mindanao.36 It has also been a traditional lament that Mindanao has not been getting its proportionate share of the government budget and of official development assistance (ODA) commensurate to its contribution to the total economy.37 More recent data suggest that deliberate efforts have been made to correct this. As Table 7-2 shows, Mindanaos share in key components of the national budget has exceeded its contribution to overall GDP since at the least the mid-1990s.
34 Mindanao 2000 Integrative Framework, p. 11. 35 Ibid, Chapter II, p.14 36 It must be pointed out that loans obtained by firms operating in Mindanao but with business offices in Metro Manila may be booked in bank head offices in Metro Manila (Makati City). Notwithstanding this, it still appears likely that there is a net outflow of savings from Mindanao through the banking system. 37 Chapter 9 discusses financing issues in greater detail.
Box 7-1
pineapple (88.1%), bananas (80.8%), coffee (74.5%), cassava (76.4%), and coconut (59.4%). It also accounts for a significant share of production of sweet potato (23%), mango (18%) and sugarcane (14%), among others.38 From being primarily a supplier of fresh foods, Mindanao has transformed into an exporter of processed foods. From 1995-2007, an average of 71% of the total agricultural exports of Mindanao had value-adding. Topping the list are coconut-based products, accounting for nearly half (48%) of total Mindanao exports. Bananas and pineapple are the other prominent agricultural exports from Mindanao. Mineral resources are particularly abundant in Mindanao, offering vast potentials for mining development, which has been attracting substantial investments from foreign and domestic mining companies in recent years. With the whole country being within the Pacific Ring of Fire, Mindanao in particular has several identified rich mineral areas (Figure 7-4). Metallic deposits include gold, bauxite (aluminum), nickel, copper, chromite, zinc, magnetite, and iron. Mindanao accounts for an estimated 75% of the countrys gold reserves, 67% of bauxite (aluminum), 63% of nickel, 56% of copper, and 43% of chromite. Potential nickel reserves in Mindanao have been valued at an estimated US$2 trillion, copper reserves at US$6.5 billion, and gold reserves at US$2-3 billion.39 Non-metallic mineral resources include marble, salt, sand, gravel, silica, clay, and limestone. Mindanao has consistently been a net exporting economy, with export earnings, mostly from agri-based exports, reaching US$2.19 billion in 2009 (see Figure 7-5). It has had a long tradition of export orientation, possessing strong market shares in key products, and has been a world player in the agricultural export markets for products such as coconut, rubber, pineapple, and banana, among others. It has established a global reputation for quality Cavendish bananas, pineapple products, and canned tuna, among others.
Tourism is acknowledged to have great potential in Mindanao, given its rich and varied array of tourist attractions for various interests, including history and culture, natural beauty and adventure. The Tourism Act of 2009 now provides the legal and policy framework for developing tourism potentials and attracting tourism-related investments in the country, including in Mindanao. The promotion of BIMP-eAGA as premier ecotourism destination also provides substantial growth potential in Mindanao tourism. In the medium term (2011-2016), the Department of Tourism (DOT) has taken a cluster approach in pursuing tourism promotion, with nine defined clusters for Southern Philippines (Mindanao) highlighting various types of tourism assets present in the respective area clusters (Table 7-3). The Mindanao 2000 target of 3 million tourists per year was achieved in 2007 when total tourist arrivals hit 4.7 million; however, this figure saw a significant decline in 2008 with the onset of the global economic downturn, further declining in 2009 (Figure 7-6). The targeted 2 million domestic tourists per year was achieved as early as 2003. however, the target of 1 million annual foreign tourist arrivals has remained elusive, with more than 90% of Mindanaos total tourist arrivals being domestic tourists. On the average, Mindanao has attracted only 5.9% of total foreign visitors to the country. Thus, there is wide scope for further tourism growth in Mindanao. Meanwhile, the potentials for ICT-based industries have been enhanced with the installation of the necessary information infrastructure in recent years; still, there remains much scope for improvement. More public and private investments are being programmed in support of the requirements of the business process outsourcing (BPO) industry, which include redundant international connectivity, expansion of multi-media infrastructure, and a deregulated and competitive telecommunications industry.
38 Statistics compiled by Mindanao Development Authority from the Bureau of Agricultural Statistics and other sources. 39 Data from Mines and Geosciences Bureau.
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Table 7-1. Gross Regional Domestic Product (GRDP) of Mindanao Regions In Million Pesos at Constant Prices REGION
IX X XI XII Caraga ARMM
Source of raw data: NSCB
2009
38,197 73,207 67,367 50,556 18,958 12,409
2008 GRDP
35,762 71,133 63,928 49,897 18,466 12,099
Local investments, which account for the lions share of Mindanao investments (Figure 7-7), almost doubled in value from PhP6.124 billion in 2007 to PhP12.004 billion in 2008 or a 96% growth, and the highest value posted since 1994. Attractive investment incentives are in place,40 and industrial zones have been established to widen location options for investors. Notwithstanding this, foreign investments declined by 7% from PhP1.833 billion in 2007 to PhP1.704 billion in 2008. Recent investments in Mindanao have prominently gone into mass housing, mineral processing, and property development (Figure 7-8).
actually subject to political conflict. This deters the entry of investments from outside of Mindanao, whether Filipino or foreign. Remaining wide gaps in infrastructure in many places, notwithstanding the progress made in the last 15 years. energy is a binding constraint to greater industrial and other business activities, as is water supply, transport and telecommunication facilities in many areas with otherwise great promise. Tourism, for one, remains hampered by inadequate facilities, including basic amenities like clean public toilets, decent eating and lodging places, and so on. Weak or lopsided value chains that effectively lead to the exclusion of certain areas or sectors, higher costs, inequitable benefits and concentrated market power, and inhibited growth potentials of otherwise promising production activities given Mindanaos inherent endowments. Inhospitable local political and business climate, particularly where the local economy is dominated and controlled by powerful political leaders, or where corruption and cumbersome business approval processes significantly raise the cost and risks of doing business. Low levels of productivity especially on the farms, due to poor access by farmers to inputs, weak rural infrastructure, inadequate post-harvest facilities, lack of quality standards and grading mechanisms at the farm level, lack of farm credit (including long term financing appropriate to investments in long gestating crops), environmental degradation, weak technology support and inadequate extension services. Unresponsive government programs due to excessively top-down planning, program/project design, and decisionmaking manifested in one-size-fits-all policies and programs that are often not responsive to actual needs in specific localities of Mindanao. Government support
systems are too often fragmented and uncoordinated. Meanwhile, most local government units are ill-equipped to address persistent development challenges due to lack of technical capacity and weak finances.
Sulu-Sulawesi area for alternatives and expansion. Mindanao would be well-placed to tap potential opportunities in this given its favorable location relative to the rest of the economies of the region. With the global trend of aging populations in rich industrialized countries and elsewhere, there are growing opportunities in aging-related products and services, including retirement estates, medical tourism and wellness facilities, and caregiving services. Certain areas in Mindanao can be potentially attractive locations for such facilities and enterprises.
Key Opportunities
The countrys membership in the WTO and the access to the global markets that it brings widens trade opportunities for Mindanaos traditional and non-traditional exports (e.g., in europe, east Asia thru an expanded AFTA, and the fast-growing BRIC countries Brazil, Russia, India and China). In particular, there is rapidly increasing demand in rich countries in the West for tropical horticultural products such as tropical fruit juices (e.g. Granada), stebia (natural sweetener), okra and asparagus, dietary supplements and alternative medicine (e.g. mangosteen). Rapid growth in the economies of China and India, along with the rest of Asia, is creating rapidly rising demands for food products within the Asian region as well. There is strong interest in Mindanao from foreign investors especially in mining, as rising demand for gold, copper, nickel and other minerals in international markets has raised mineral prices to new highs. While the potentials are high, due care must be taken to ensure that (1) social and environmental responsibility is the norm among all mining enterprises, (2) the state obtains its due share in the value of the natural resource, and (3) there is sufficient domestic value-adding to broaden the benefits from mining development. The huge and growing Islamic market in Asia and the Middle east provides opportunities for halal industries, especially for producers in Muslim Mindanao. There have been expressions of interest from the wealthy Islamic states in joint ventures in halal industries to be located in Mindanao. The same trend raises prospects for wider opportunities in Islamic finance. Regional logistics hubs like Singapore and Taiwan are increasingly reaching capacity limits, and investors are looking toward the
Persisting hurdles
high levels of poverty, income inequality and wide disparities persist in Mindanao. The pace of poverty reduction has been slow, and as in the rest of the country, poverty incidence has actually risen since 2003, while income distribution has not improved in the face of high economic growth. Meanwhile, environmental degradation has continued unabated and environmental disasters are occurring with alarmingly increasing frequency. The basic challenge, then, is to stimulate broad-based economic activity that would have wide benefits across the geographical, social and cultural divides prevalent in Mindanao, while avoiding irreparable damage to the environment. Given Mindanaos peculiar history, context and needs, much higher levels of investment are needed to stimulate not just more economic growth, but to attain quality growth that is both inclusive and sustainable. The most crucial impediments to attaining this goal are well known, but are also very difficult to overcome. These are the following: A generally negative peace and order image for most of Mindanao, affecting the attractiveness even of areas not
Where We Want to Go
Vision
Mindanawons manifest a widely expressed desire to see, in 20 years: A vibrant Mindanao economy that is unified and integrated, driven by socially and environmentally responsible enterprises that are internationally competitive, built on judicious and sustainable management of its rich human, natural and cultural endowments, and providing wide employment and broad and equitable benefits to all Mindanawons.
40 These incentives include 4-8 years Income Tax Holiday (ITH), special 5% tax rate on gross income after the lapse of ITH and exemption from taxes and duties on imported capital equipment for IT Park/ Ecozone locators, zero duty on imported capital equipment per E.O. 528, exemption from 12% input VAT on allowable local purchase of goods and services, unrestricted use of consigned equipment, exemption from wharfage dues, employment of foreign nationals, etc.
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Figure 7-5 Mindanao Foreign Trade, 1995-2009 Table 7-2. Mindanaos Share of Total Government Budget in Key Sectors and in GDP, 1995-2007 Sector/Year Economica Socialb Infrastructurec Mindanao GDP Share 1995 28.07 20.55 20.69 17.95 1997 25.62 21.51 33.58 17.87 1999 27.24 22.36 25.49 18.07 2001 26.73 21.84 27.65 17.80 2003 27.41 22.23 24.62 18.12 2005 26.79 21.77 19.56 17.70 2007 26.58 21.69 22.59 17.70
Source of Basic Data: General Appropriations Act (GAA) a comprises budget for DAR, DA, DTI, and DOT b comprises budget for DepEd, CHED, SUCs, DOH, DSWD, and DOLE c comprises budget for DPWH and DOTC
3.
By 2020, The Mindanao economy is growing at an average annual real GDP growth rate of 8-10 percent, average annual income (GDP per capita) of Mindanawons exceeds P22,000 in constant 2009 prices, and unemployment is no more than 2 percent. Forest cover in Mindanao has increased to at least 35 percent of land area. Vacuum-dried fruit products and mariculture products from Mindanao are among the top 5 Mindanao export products, carrying a distinctive Mindanao-made trademark with international recognition.
Targets
By 2016, The Mindanao economy is growing at an average annual real GDP growth rate of 7-8 percent, average annual income of Mindanawons (GDP per capita) exceeds P16,000 in constant 2009 prices, and unemployment rate is no more than 3 percent.
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Source: BOI
Cluster Code
SP-1 SP-2
Source of raw data: DOT Regional Offices
Cluster Name
Surigao-Dinagat Islands Agusan River Basin Cagayan de Oro Tangub Coast and Hinterland Bukidnon Highlands Dipolog-Dapitan Coast Zamboanga Peninsula Davao Gulf and Coast CotabatoSarangani ARMM
Tourism Theme/Activity
Island Resort Marine Sports History Sightseeing Events Ecotourism Adventure Business MICE* Entertainment Ecotourism Adventure Sightseeing History/ Archaeology Events
SP-3
Camiguin, Cagayan de Oro City, Misamis Oriental, Island Resort Marine Sports History Sightseeing Iligan City, Lanao del Norte, Tangub City, Ozamiz Events Ecotourism Adventure Business MICE - Entertainment City, Oroquieta City, Misamis Occidental Bukidnon Island Resort Marine Sports History Sightseeing Events Adventure Business MICE Entertainment Ecotourism
Domestic tourist arrivals in Mindanao reach 8 million, while foreign tourists reach 2 million. Mindanao BPOs contribute 10% of nationwide BPO earnings. Intra-Mindanao commerce has doubled in volume from its 2010 levels. Mindanaos organic farming island/district is fully operational, supplying organic food to domestic and export markets. export revenues from halal products exceed $30 million. Mining industry exports account for at least 10 percent of Mindanao exports in value terms.
halal product exports from Mindanao exceed $50 million in value. The mining, minerals and metals sector accounts for 20% of Mindanao exports in value terms.
SP-4
SP-5 SP-6
Dapitan City, Dipolog City, Zamboanga del Norte Resort Marine Sports Sightseeing Events Zamboanga Sibugay, Zamboanga del Norte, Zamboanga City, Pagadian City, Isabela City, Zamboanga del Sur Davao City, Samal Island, Davao del Norte, Davao del Sur, Compostela Valley, Davao Oriental North Cotabato, South Cotabato, Sultan Kudarat, General Santos City, Sarangani, Cotabato City Basilan, Tawi-Tawi, Jolo, Lanao del Sur, Maguindanao
Marine Sports History Sightseeing Events Business MICE Entertainment Island Resort Marine Sports History Sightseeing Events Ecotourism Adventure Business MICE Entertainment Resort Marine Sightseeing Tribal Cultures Events Ecotourism Business Ecotourism Adenture Sightseeing History/ Archaeology Events
SP-7
SP-8 ARMM
By 2030, The Mindanao economy is growing at an average annual real GDP growth rate of 8-10 percent, average annual income (GDP per capita) of Mindanawons exceeds P42,000 in constant 2009 prices, and full employment prevails in Mindanao. Forest cover in Mindanao has stabilized at no less than 40 percent of land area. Domestic tourists exceed 15 million and foreign tourists exceed 5 million yearly. Mindanao BPOs contribute 20% of nationwide BPO earnings. Mindanao exports rice to Visayas and Luzon apart from fully providing its own needs. Organic food exports are among the top 10 exports of Mindanao.
Internal integration, on the other hand, will be pursued on two fronts. Mindanaos progressive economic growth centers must increasingly shift their focus from a traditional nucleussatellite linkage to Metro Manila and Cebu, to complementary interconnections among one another. More importantly, Mindanaos leading growth centers must be more strongly linked to its depressed lagging areas through their respective complementary roles in the economic value-chain. This complementarity suggests that the growth centers can help pull up the lagging areas, instead of the latter pulling down the former through the deterrent effect on investments and tourism of the misplaced perception that all of Mindanao is beset by violent conflict. The value chain needs to be strengthened to mitigate its traditional lopsidedness in favor of the progressive growth centers. As discussed further below, this would be served by having more value-adding activities closer to primary production areas and in smaller enterprises, and clustering of producers to achieve economies of scale especially in marketing.
Ecological integration implies planning Mindanaos sustainable development based on its rich ecosystems, dominated by marine resources, fertile riverbasins and watersheds (see Chapter 3). It means planning with full cognizance of the carrying capacity of the environment and natural resource base. It also recognizes that Mindanao, like the rest of the country, is an archipelagic economy; thus, plans must not be dominantly terrestrial or landbased in orientation. In inland areas, a river basin/watershedbased management approach will help enhance synergy and cooperation (and thus better integration) among and across different government units and administrative jurisdictions. It could also help unify affected residents who are common stakeholders of the river basin ecosystem across cultural, political and socioeconomic lines. Taking such an ecosystem-based approach would also highlight food security and environmental integrity as key goals of Mindanao development.
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3.
For the land-based economy, the key drivers will include: Agriculture and Agribusiness (especially processed fruits, organic food, halal food products) Tourism (terrestrial ecotourism such as forest canopy tours, ziplines; historical and cultural package tours; medical tourism and retirement estates) ICT-based services (telecommunications, business process outsourcing e.g., contact centers, transcription, animation, design) Mining and minerals processing, metal manufacturing
4.
5.
Economic and ecological integration implies seeing economic development and responsible stewardship of the environment not as incompatible goals, but as mutually reinforcing objectives that lead to sustainable development. One without the other is shortsighted and of limited benefit. It is only when both ends are jointly served that the ultimate goals of development are attained. Inclusive wealth creation, as the other key thrust, recognizes that the key to the upliftment of Mindanawons lives lies beyond mere income generation, but in wealth creation that is participated in and that benefits the widest cross-section of diverse Mindanao society. Wealth comprises five forms of capital: natural, human, social, physical and financial capital. Mindanao is exceptionally endowed with valuable natural capital and of abundant and diverse human capital with a diversity of ethnic, cultural and historical backgrounds. Its historically rich social capital 41 had been impaired through the years by conflict, violence, political strife and bad governance, making the rebuilding of social capital a key imperative and challenge. Physical capital has seen significant improvement in Mindanao in the last 15 years through infrastructure improvements; still, the gap to be filled remains wide. Finally, financial capital has been inadequate and elusive because of traditional biases and impediments, seen in the disproportionately small share of the financial assets and of private investments reaching Mindanao. These various forms of capital are interconnected; for example, inadequacy of financial capital traces in large part to the deterrent effect on private investment of the fractured social capital in the islands. Wealth creation refers to activities that build up societys stock of capital in its various forms described above. It represents a much higher level of economic activity than simply earning income, such as wage or salary from employment, rental income from property
ownership or interest from a financial investment. It involves entrepreneurship, which creates value out of the combination of the primary factors of labor, land (natural resources) and capital. Wealth creation thus creates both employment and income in various forms, thereby providing basis for further value creation and capital accumulation. It is through active wealth creation activities within Mindanao that it will overcome its traditionally lopsided economic relationship with the rest of the country and the outside world. Inclusiveness connotes equal opportunities,42 an imperative borne out of a history of highly skewed endowments and opportunities in Mindanao. Inequality in endowments is historically rooted and tends to be taken as a given; inequality in opportunities, on the other hand, is borne out of years of failure in governance, and may thus be more subject to control under superior governance. In the context of wealth creation, inclusiveness implies equal access by men and women; Muslims, Christians and Lumad; and rich and poor from all corners of Mindanao to various opportunities for harnessing the various forms of capital in the island-region.
6.
Reform policies that impinge on growth of the above key strategic drivers, such as: Abolish the cabotage law (see further below) Adopt a pocket open skies policy for secondary international airports Reconcile conflicting laws and regulations governing mineral lands and other natural resource areas, indigenous lands and protected areas
7.
8.
Facilitate access of such industries to basic infrastructure including low-cost energy and efficient transport facilities; and to domestic and foreign markets (see below and Chapter 9) Provide technology and financing support for these key strategic drivers through the following: Increase and sustain R&D budgets for Mindanao-based state colleges and universities; research centers/institutes (see Chapter 9); Provide incentives, rewards and awards for homegrown technologies responsive to needs of and actually commercially adopted by SMes; Develop with the banking system long term financing facilities to support working capital requirements for production of long-gestating fruit crops; Define and implement internationally-recognized quality standards for various commodities (e.g., fruits, carrageenan, organic food, halal products) and provide accessible testing facilities for such.
These key strategies are further elaborated below, along with concrete initiatives that will translate them into action. Focus on key strategic drivers of inclusive and sustainable growth in Mindanao. Prioritize policy, program/project and resource support on sectors and industries holding greatest promise for rapid, sustained and broad-based growth. Adopting this key strategic drivers approach will optimize limited resources for the greatest and widest benefit of Mindanawons. Capitalizing on Mindanaos archipelagic geography and rich inland watersheds and river basins, production activities building on while sustaining these assets will be among the key economic drivers for Mindanao within the next 20 years, such as:
41 See Chapter 6, where the concept of social capital is defined. 42 Ali and Zhuang (2007). This provides the Asian Development Banks operational definition of inclusive growth, which is thus defined as growth with equal opportunities.
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Formulate area development plans based on watersheds, riverbasins and other ecosystems as unit of planning. Define the major ecosystems that would be logical units of planning. Some are already clearcut and well-known, such as the Pulangi Riverbasin and the Agusan Riverbasin. This will require environmental expertise, and should be done with technical guidance from the DeNR with participation from other relevant bodies in and out of government. This is a prior step to undertaking deliberate planning on an area basis, transcending local administrative boundaries. Strengthen capabilities for use of geographic information systems (GIS) and mapping by LGUs, regional government agencies and academic and research institutions. As a valuable tool for physical planning, GIS technology must be accessible to Mindanao LGUs, especially to those who will take lead roles among groups of LGUs planning jointly on an ecosystem-wide basis. Bring together LGUs sharing an ecosystem - whether a watershed, a riverbasin, a coastal or a marine ecosystem to embark on joint area planning exercises. Where the concerned ecosystem transcends administrative regions, MinDA as Mindanao oversight body for development, may convene such joint planning activity. Where a complete ecosystem falls within the jurisdiction of one administrative region, the RDC may play the convenor role. The objective would be to undertake development and physical planning for the defined ecosystem, across the concerned LGUs. To this end, there is need to promote and encourage alliances among LGUs sharing an ecosystem, to facilitate such ecosystem-based planning and effective comanagement of implementation of resulting plans. An enabling environment to facilitate such alliances should be provided via relevant institutional and financial management flexibilities. (See Chapters 3 and 8 for more on LGU alliances and examples thereof.) Formulate ecosystem development plans that bring together and harmonize separately prepared local comprehensive harmonization to consider development plans (CDPs). ecosystem-related concerns may involve modifications as may be necessary to ensure coherence of cross-boundary concerns within the ecosystem. The resulting plans would indicate, among other things, the kinds of economic activities/enterprises that may be established (and those that will be restricted) within the area based on the carrying capacity of the natural resource base; appropriate public investments; and other requirements to ensure the proper economy-environment balance. Address gaps and weaknesses in the value-chain. Identify points in the various production-marketing systems where links in the value chain may be weak, lopsided or missing, in order to guide critical focused interventions. It is the value chain that links the local economies of Mindanao together, and links Mindanao with the larger national, regional and international economy. The thrust of strengthening Mindanaos economic integration in its various dimensions is
thus served by strengthening and broadening the various links in the chain, aimed at (1) enhancing efficiency to reduce costs; (2) avoiding undue concentration of market power and its concomitant result of raising consumer prices or depressing farm gate prices; and (3) facilitating active participation by lagging areas. Both efficiency and equity considerations are thereby addressed in the promotion of growth-enhancing economic activities, thus serving the thrust of greater inclusiveness along with accelerated economic growth. Foster sustained supply chain linkages for the above identified key strategic drivers across Mindanao, Mindanao with the rest of country, and Mindanao with regional and international partners. For example, fruit processing (e.g., vacuum-drying or freeze-drying) technologies could be made widely available to SMe entrepreneurs in fruit surplus areas in Mindanao, through joint efforts of the Department of Science and Technology (DOST) and the machinery manufacturing industry. ICT-oriented NGOs could assist in linking small producers to regional and international markets via e-commerce mechanisms. Many other examples of creating or strengthening supply chain linkages may be identified and pursued. Deliberately promote supply-chain linkages between depressed areas (especially former conflict areas) and progressive economic centers. As mentioned above, this will permit the latter to pull up the former rather than have the former drag down the latter due to the negative image of violent conflict that deters investment, as is currently the wide lament. Depressed municipalities would typically make up the upstream components on one end of the value chain (i.e., as raw materials suppliers), linked at the other end to the regional economic centers (e.g., Davao City, General Santos City, Cotabato City, Zamboanga City, Cagayan de Oro City) which are either processing centers, final markets or take-off points to the final markets in the rest of the country and the world. Purposive initiatives to fortify this link would include provision or improvement of storage, transport and communication facilities. Fostering greater processing at or near primary production areas (see above and below) would also serve this objective. Promote greater processing and other value-adding activities farther upstream in the chain, closer to the primary production areas. Doing so can yield the benefit of reduced costs, inasmuch as it is cheaper to transport processed products than bulkier raw materials. For example, carrageenanprocessing facilities that are closer to seaweed production areas could improve efficiencies in the supply chain. Such improved efficiencies are particularly important in the face of stiff competition from Indonesia that has emerged in recent years. For this to happen in Tawi-Tawi, a dominant seaweed producer, cheap and reliable electric power must be made available to make even initial processing feasible. Such policy will also improve market access of primary producers, especially when processing and value-adding activities are more dispersed in small and medium enterprises, as further expounded below. Encourage a more pluralistic structure in the value chain, involving small to medium scale food processors, as opposed to being concentrated in large-scale processing centrals that foster monopolistic and monopsonistic tendencies in the
trading system. An example is the muscovado sugar industry in Sultan Kudarat where some 15 small muscovado processing plants are servicing 400-500 hectares of sugarcane plantations.43 Farm gate prices for agricultural and marine (e.g., seaweed) products are likely to improve in such a pluralistic and competitive structure, to the benefit of small and medium producers. This may be achieved through an appropriate combination of policy and incentive instruments; the Sultan Kudarat experience merits study for this purpose. Such approach would further contribute to narrowing of the widening gaps among and between Mindanaos growth centers and its impoverished regions, thereby promoting more inclusive growth. Provide context-appropriate support infrastructure from upstream (e.g., energy, irrigation and water supply) to downstream (e.g., transport, communication and storage) to serve the entire value chain. In many cases especially in Mindanao, solutions need not be costly or sophisticated. For example, for certain communities isolated by difficult topographic conditions such as mountains or rivers, cable conveyor systems or horses may be adequate substitutes for farm-to-market roads to permit efficient transport of primary produce to the market (Box 7-2). (See also Chapter 9 for more extensive discussion on enabling infrastructure). Facilitate industry organizations with broad membership representing the various links in the value chain, to promote holistic approaches to challenges facing specific commodity systems. Traditional industry organizations have typically brought similar players within a commodity industry together among themselves, in associations of growers, traders, and processors. A value chain development strategy would be better served by organizations that permit active interaction, knowledge sharing and coordination across these various types of players. Thus, rather than have, say, distinct associations for sugar growers and for sugar millers, a sugar industry association that counts among its members growers, millers, and those engaged in transport and logistics, storage, and food manufacturing would be more responsive to the challenges facing sugar as a commodity industry. Develop more active external economic linkages with BIMPEAGA partner countries, the rest of Asia (especially China), and the Middle East (especially for Halal industries). This includes active pursuit of the ASeAN RORO initiative to further ease transport of people and goods with and across our regional neighbors, and other initiatives aimed at invigorating crossborder trade and investment within the regions west and south of Mindanao. Pursue a massive enterprise development thrust. Mobilize the entire government machinery to provide a hospitable enabling environment for entrepreneurship and enterprise development. While this strategy is worthy of nationwide application, Mindanao in particular offers wide scope for entrepreneurial activity owing to its rich endowments
of natural and human capital. historically, large investments in sizable ventures in agriculture, mining and manufacturing had provided a significant boost to overall Mindanao production and GDP growth. But historical experience suggests that their benefits have not permeated across the Mindanao populace, and may have even contributed to greater inequity in certain parts of Mindanao (especially in Regions IX and X, as seen in Chapter 6) relative to the rest of the country. In light of this historical experience, Mindanaos economic development must henceforth be consciously geared toward greater inclusiveness, a goal best served by having a strong small and medium enterprise (SMe) sector. Thus, alongside continued efforts to attract large desirable and responsible investments by both domestic and foreign investors, Mindanao must embark on a massive SMe development effort that would have all government agencies and instrumentalities contribute to the goal. This means that the traditional impediments facing SMes in access to financing, technology, raw materials and markets must be addressed with deliberate policy and program interventions. National government agencies (such as DTI, government financial institutions, Bangko Sentral ng Pilipinas) and LGUs all have respective roles to play in improving such access through interventions of a regulatory (e.g., rules governing banks; systems of quality standards) and institutional (e.g., testing centers for quality standards and new technologies) nature. Proactively link various market players with a view to catalyzing investments and synergistic relationships. Beyond improving the enabling environment, deliberate efforts to bring together various market players will help bridge information gaps that may be lying in the way of pursuing mutually beneficial business relationships, including between primary producer groups and processors, between other links in the product value chains, between SMes and large enterprises, and between financiers such as venture capitalists and innovatorentrepreneurs. Government, industry associations and NGOs can play this effective matchmaking role in facilitating business relationships that could pave the way for more productive economic activities. Streamline processes and minimize transaction costs in setting up a business and overall costs of doing business. This is a nationwide imperative for both concerned central government agencies and LGUs that includes establishment of operational one-stop-shops for business licensing and other business dealings with government, such as processing of export documentary requirements. Incentives like performance-based grants for LGUs could include initiatives in this direction among the incentivized indicators of good performance. Undertake catalytic investments by the public sector where voluntary private investment is impeded by historical peace and order problems. This would entail developing a policy and mechanism whereby government, in well-defined exceptional cases, may infuse equity into catalytic enterprises in conflict areas that will provide employment where private investment will not normally venture. This represents a departure from the usual non-interventionist market-based paradigm, justified by the
43 It is the monopsonistic (single-buyer) situation resulting from having a concentration of processing in a large facility that tends to result in depressed farm-gate prices for farmers, as a buyers market for the primary product ensues.
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need for affirmative action to break conflict areas out of a vicious circle of poverty. Provide meaningful enticements to encourage investments in conflict-affected areas, whether in small, medium or large enterprises. Of particular importance would be the pursuit of distinctive enterprise development initiatives in predominantly Bangsamoro and Lumad areas, exemplified by the successful La Frutera project in Datu Paglas (Box 7-3) and the proposed Iranon project in Polloc, Maguindanao. Such approach to enterprise development marked by a home-grown and culturally-sensitive Bangsamoro or Lumad development model promises to be crucial to enlivening local economies in conflict areas without having to wait for attainment of a peace settlement with the MILF. 44 Specific initiatives could include the following: enact an improved investment incentives law for ARMM that provides sufficient attraction for locating investments in the ARMM provinces. Provide access to concessional financing (e.g. from IFC, ADB, JBIC) for investors venturing into former conflict area Identify, foster and facilitate business partnerships with enlightened developmental and entrepreneurial local leaders in conflict areas, towards replicating success stories of business enterprises that have thrived even in conflict areas. The experience of the La Frutera company in Datu Paglas is a widely cited model, whose success is attributed to the enlightened leadership of the late hashim Salamat and Datu Ibrahim Toto Paglas (Box 7-3).
towards entrepreneurial education to raise the proportion of graduates who shall create jobs rather than merely look for jobs. Proactively identify and target specific foreign investor groups who are likely to be attracted to invest in Mindanao. A logical target group would be investors from Islamic countries in Asia and the Middle east, particularly for Islamic products and services. Investors from China have also shown strong interest in agribusiness ventures in Mindanao. The mining industry is already attracting much interest from foreign investors from Australia, Canada, US and europe. Pursuing all these would entail effective economic intelligence on the part of Philippine embassies and consulates abroad. Develop and market a Mindanao brand that would be internationally promoted to be widely recognized for quality and desirability. Pursuit of this could be a partnership between private sector and government (e.g., DTI, DOST), and can in turn be a vehicle to enforce quality standards on Mindanao products (e.g., processed fruit, furniture, halal products) and services (e.g., package tours, retirement estates, Islamic finance). It can likewise be a vehicle for stimulating higher value adding for various Mindanao products. Broaden and deepen the agriculture/agribusiness sector. Diversify into other horticultural crops and in more processed forms to reach wider domestic and export markets. Mindanaos comparative advantage in agriculture and its allied industries is well recognized, and will remain indefinitely into the future. This will especially be true with traditional commercial crops that have dominated Mindanao exports, like bananas, pineapples and coconuts. There is much scope for further diversification into other horticultural crops, particularly tropical and exotic fruits, and will hinge on availability and accessibility of processing technologies that will lengthen the shelf life of such products (e.g., vacuum-drying and freeze-drying technologies as commonly used in Thailands fruit exports). Specific crops with particular promise include moringa (malunggay); tropical fruit juices (e.g. Granada); stevia (a natural sweetener); okra; asparagus; dietary supplements and medicinal plants (e.g. mangosteen); and bamboo. Target rice self-sufficiency for Mindanao as a long-term goal. Notwithstanding its rich agricultural endowments, food security remains a challenge for Mindanao, with rice production falling well short of total requirements. Over the long term, trends in the world rice market suggest a further thinning in rice world trade, already thin at present with only an estimated 5 percent of total world rice production entering international trade. There are indications that rice-surplus countries are increasingly retaining larger portions of their rice production due to growing domestic demands beyond their capacity to further raise production. The
implication is that availability of importable rice may become more limited and at much higher prices in the longer term, and likely within the next 10-20 years.45 It will thus be prudent to pursue the long-term goal of producing Mindanaos own rice requirements at the minimum, especially given that its superior agro-climatic conditions for growing the crop relative to other parts of the country put it in a better position to respond to the countrys rice requirements. This could initially be set as a 10-year goal, but the pace at which the above projections unfold in the years ahead would eventually determine whether the goal must be reached sooner, or possibly later. 45 Pursue a unified private sector-led development agenda for Mindanaos farm, fisheries and food sector, addressing various policy, institutional and physical impediments to improved productivity. In light of the above discussions, Mindanao must find a proper balance between export-oriented agriculture and the demands of internal food security over the long term. Key to addressing this balance is a substantial improvement in farm productivity, which has remained low compared to other parts of the country and other countries in the region. In view of this, Mindanao officials and stakeholders need to push for the following key imperatives of nationwide applicability, but of particular importance to Mindanao: Resolve conflicting claims on land and natural resources, which have put on hold substantial potential investments. Complete and conclude implementation of the Comprehensive Agrarian Reform Program, to reinvigorate rural land markets and spur increased farm investments. Repeal the Cabotage Law to unleash greater competition and reduce costs in domestic shipping. ensure an efficient devolved agricultural extension system administered from the provincial level, and tap leading farmers in farmer-to-farmer mentoring schemes within their barangays. Facilitate clustering schemes to achieve scale economies in production and marketing for smallholder farms (e.g., the NorminVeggies model; Malaysias FeLDA/FeLCRA nucleus estate system). Undertake innovative schemes for wider access to agricultural credit, such as accepting standing crops as collateral, longer-term loans to match gestation periods of tree crops, and application of successful microfinance approaches to farm finance. empower LGUs to take primary responsibility for planning and executing rural development initiatives on the ground (rowing), as the Department of Agriculture (DA) focuses on overall steering functions (e.g., standards setting, regulation, international negotiation) and building LGU capacities in managing agricultural development.
Reform the agriculture budget to promote subsidiarity and the primary role of LGUs in agriculture development by downloading budgetary resources to LGUs and communities. In line with this, assert and strengthen community-based planning, program/project identification, and implementation. Raise budgets for agricultural R&D to levels consistent with international norms (see Chapter 9). Fill in remaining gaps in support infrastructure and farm inputs for agriculture, e.g., irrigation, farm to market roads, post-harvest facilities, quality seeds. expand competition in the agricultural trading system through the following: Institute appropriate regulatory measures and legislation to curb cartels and monopolies/ monopsonies; Prioritize infrastructure facilities that expand market options of farmers/ growers (e.g., farm-to-market roads and bridges, price information system, barangay public Internet access points); and Foster dispersal of SMe agri-processing enterprises in primary production areas to expand choices of outlets for farm products (see discussions above). ensure convergence of government support services for agriculture, to address the issue of the fragmented, uncoordinated approach of these support services (e.g. different bureaus/agencies handling fertilizers, seeds, credit, etc. with little if any coordination among them). Facilitate transformation of farmers from mere producers to agri-entrepreneurs with deliberate interventions such as business extension services, through joint efforts among LGUs, DA, DTI and other institutions.
Other initiatives in pursuit of massive SME promotion and development would include: Maximize unique livelihood and employment opportunities from Mindanaos rich cultural base. Apart from halal industries and Islamic finance, products and services showcasing the distinctive arts of the region have great market potential, such as exotic fabrics and textiles, apparel, furniture and fixtures, objects of art, theater and film, literature, etc. Government support in facilitating market access outside of Mindanao including overseas is important here. Develop innovative mechanisms to effectively channel savings from overseas remittances toward local investment and enterprise development in Mindanao. These could include municipal bond issues targeted to OFW families to raise financing for local development projects, for example. Promote techno-entrepreneurship especially among the younger generation, including new graduates and out-ofschool youth. This refers to development of enterprises in information and communication technology (ICT), to which the young have a natural affinity. To this end, Mindanao high schools must be deliberately oriented
Pursue the following measures specific to Mindanaos agriculture agenda: Develop context-appropriate agricultural technology support from a Mindanao-based science and technology (S&T) and research and development (R&D) system/ network (see Chapter 9); Reinvigorate the Mindanao poultry and livestock industry, especially as it gears up to meet rapidly-growing demand for halal food products; Identify and develop strategic agribusiness corridors (e.g, Iligan and Bukidnon in Region X) along with necessary elements of the value chain that need to be developed or strengthened (see above discussion on value chains), and roles of the respective LGUs involved.
44 This is particularly applicable in the case of MILF-dominated areas, where externally-driven development initiatives tend to be viewed with suspicion as a counter-insurgency effort seen to undermine achievement of a satisfactory political settlement. In such contexts, a distinctively home-grown development model is deemed to be more acceptable. See Chapter 5 on Peace and Security where this concern is also articulated. 45 This outlook is actually debatable, as some analysts blame net consuming countries rice self-sufficiency policies for inadvertently inducing rice surplus countries to reduce production in the long term even if they are capable of further substantial increases in rice production owing to favorable natural conditions (see, for example, Clarete 2010).
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expand scholarship opportunities to encourage Mindanao youth to enroll in agriculture and agriculture-related courses, with scholarships coming from both government and the private sector, especially those who have benefited and stand to benefit from a strong agricultural human resource base in Mindanao.
Anticipate and address long-term trends that threaten to dramatically alter the nature of challenges facing Mindanao agriculture, including intensified effects of climate change including sea level rise, thinning of the international rice market, rapid demand growth for natural and organically-grown food, and regional economic integration. In light of these trends, agriculture and agribusiness must be able to respond with greater climate change resilience; increased self-reliance in rice supplies and eventual self-sufficiency or surplus; wider prominence of organic agriculture; and strengthened competitiveness amid wider inter-regional trade in farm products. Specific long-term imperatives include the following: Prioritize climate change resilience in planning for agriculture development in Mindanao. This entails building in climate change adaptation strategies at all levels of agricultural planning, including identifying and breeding drought-resistant crop varieties and ensuring climate change resilience in rural infrastructure, among others. Undertake the necessary policy reforms (e.g., reorganizing the extension system) and public investments (e.g., irrigation and post-harvest facilities) to achieve rice sufficiency in Mindanao within the next 20 years. As argued above, selfsufficiency as a long-term goal is strategic and prudent in light of world market trends. Appropriate productivity improvements need to be pursued along with sustainability concerns. Position Mindanao as a prominent international center for organic farming and sustainable agriculture, through corresponding public investments, institutional support mechanisms and policy reforms. Identify and designate a suitable island as an exclusive organic farming island or isolated area based on appropriate criteria (with Basilan as a possible candidate), and pour ample public investments and efforts into fully realizing this goal by 2020. Along with this, support and replicate successful sustainable agriculture models and promote their further development and scaleup through formal institutional support from DA and DOST. Promote a vibrant services sector via trade, tourism and ICT-based services. Focus on trade, tourism and ICT-based services (especially telecommunications and business process outsourcing or BPO) as the three primary drivers of the Mindanao services sector. These three have already demonstrated rapid growth in past years, and are amply supported by Mindanaos traditional endowments and recent infrastructure developments. Over the next 20 years, these will also be the primary sources of growth in the services sector in Mindanao.
Position Mindanao as logistics hub to service the surrounding ASEAN sub-region including BIMP-EAGA and Timor Leste. Active trade between Western Mindanao and neighboring states of Malaysia, Brunei and Indonesia traces a long history and are projected to have a continued strong outlook into the future. Mindanao must be an integral part and key player in the emerging regional trading networks in the sub-region. Recent joint initiatives by China and Malaysia in the Sulu-Sulawesi Sea promise to further invigorate regional commerce in the area and its environs, with Mindanao acknowledged as a key component of such trading hub. Its location makes Mindanao well positioned to be a logistics hub to service Sabah in Malaysia, Sulawesi in Indonesia, Brunei, and Timor Leste within the next 20 years. As mentioned in Chapter 5, growing interest in alternative shipping lanes such as the Lombok-Makassar-Sulu sea-lane also promises to position Mindanao squarely in the regional trading arena. Forward-looking investments in upgrading shipping ports and airports especially in Zamboanga City, General Santos City and/ or Davao City need to be lined up for such strategy to materialize. Expand and enhance the internal logistics system serving Mindanao and linking it to Visayas and Luzon. There remains wide scope for expanded trade across and among Mindanaos primary and secondary growth centers, which would further strengthen the integration and unification of its economy. While the arterial road system is already mostly in place, rail links through the envisaged Mindanao Railway System must find realization within the next 20 years (Chapter 9). Addition of alternative routes and entry points for the RORO nautical highway are also underway, and must be pushed with greater vigor. Stronger integration of the internal logistics system will in turn expand the reach of a much wider base of Mindanao producers to markets in Visayas and Luzon, ensuring that trade will remain a key driver of the services sector well into the future. Pursue strategic efforts in tourism by charting a Mindanao Tourism Roadmap with wide stakeholder participation, to pursue the vision of making Mindanao a prime tourism destination within the nationwide tourism strategy of the DOT. Over the years, Mindanao tourism has been hampered by the regions generally negative image particularly in terms of peace and order. While a clear deterrent for foreign tourism, statistics cited above reflect a steady increase in domestic tourism in recent years. Given limited resources, the prudent strategy would be to prioritize the nine Mindanao tourism clusters as defined by DOT (Table 7-3), with those in generally trouble-free areas receiving prior attention even as peace efforts are underway in others. With Mindanaos wide range of tourist attractions for varied interests spanning history and culture, natural beauty and adventure, there is wide scope for substantial tourism growth in the next 20 years. The following initiatives should position Mindanao to take advantage of new emerging tourism services sector opportunities: Address policy impediments to wider tourism growth in Mindanao, such as resolution of conflicting claims on land and natural resources; adoption of an open-skies policy for Mindanao airports to attract greater air passenger and cargo traffic from abroad, especially BIMP-eAGA partner countries; and others.
Upgrade common infrastructure facilities such as airport terminals, highways and access roads, public restrooms, and other amenities that will facilitate access to viable historical/ cultural and ecological tourism sites in Mindanao, without compromising environmental integrity (see also Chapter 9). Private facilities such as hotels and restaurants must also be encouraged to upgrade quality via an official accreditation and rating system, among others. Upgrade Mindanao tourism products and marketing and information materials to international standards. This would include creative packaging of tour destinations related by physical distance or particular areas of interest (i.e. under the DOTs cluster approach). Production of ample, attractive and up-to-date information materials must be given the requisite resources both by the government and private sector players as a shared endeavor, with maximum use of electronic and print media for widest dissemination. Active marketing via electronic media should include the capability for online reservations and payment; various ICT groups may be tapped in this electronic marketing effort. Similarly, the assistance of the numerous ICT and communications/ media groups in Mindanao could be tapped to help rectify its negative image, and build-up a new and positive image for Mindanao in the eyes of the rest of the country and the outside world. Provide basic infrastructure facilities (e.g., transport access, water supply and sanitation) in remote tourism areas still lacking basic amenities. Tawi-Tawi, for example, possesses great potential for tourism especially from nearby Malaysia and Indonesia, and has at various times attracted interest from Malaysian tourism investors. however, lack of reliable water supplies had reportedly discouraged one particular investor from pursuing a major project in one of the provinces beautiful islands. Strengthen coordination of tourism promotional activities. There is a wide scope for improved coordination on various fronts: among private sector players in the tourism value chain (e.g., between and among resorts, hotels, transport providers including airlines, and travel agencies); between private sector players and the government, including LGUs, DOT and DFA; between government entities at home and our foreign missions abroad; between our foreign missions abroad and overseas Filipino organizations, and directly between private sector groups at home and foreign missions and overseas Filipino organizations abroad. The countrys huge overseas population base can be a potent tool for tourism marketing, and creative ways of tapping their assistance should be pursued. Assert the key role of communities and LGUs in tourism development. The Department of Tourisms communitybased ecotourism (CBeT) initiative should be supported with a wide-reaching information, education and communication (IeC) program. LGUs must be empowered and equipped to be effective advocates for tourism in their respective areas, and must ensure appointment of competent and wellmotivated local tourism officers and staff.
Reinvigorate BIMP-eAGA initiatives particularly in trade and tourism promotion among the member countries. In particular, there appears to be a need for stronger negotiation and advocacy efforts with our partner BIMPeAGA countries, to secure stronger government and private sector commitment that had suffered a hiatus in the aftermath of the Asian financial crisis. Raise the Department of Tourisms budget shares allocated for Mindanao, which continues to be disproportionate to its potential contribution to total tourism development nationwide. Undertake aggressive efforts to attract more tourism investments in Mindanao through the incentives provided by the Tourism Act of 2009 (R.A. 9593) and the Tourism Infrastructure and enterprise Authority or TIeZA particularly through the tourism enterprise zones or TeZs. Strengthen and effect tighter coordination among Mindanao-wide tourism institutions, such as the Southern Philippines Tourism Council (SPTC), Mindanao Tourism Council (MinTC) and the Association of Unified Tourism Officers (AUTO)-Mindanao.
Effect stronger cooperation between government and the BPO industry to ensure responsiveness to the human and physical requirements of the growing industry. This includes responsiveness of tertiary educational institutions to the industrys skilled human resource requirements. Apart from further expansion of connectivity (see below), it also requires anticipating and planning for the physical space requirements of the industry, which has been a major driver of the overall growth of the real property sector in the country. Pursue further improvement of the telecommunications infrastructure particularly in support of widening access to broadband connectivity all across Mindanao. Improved telecommunications facilities from both private and public investments undertaken in the last 10 years have equipped Mindanao to be abreast with Luzon and the Visayas in attracting investments in ICT-based industries, particularly BPO. BPO has begun to take a foothold in Mindanao, particularly in economic growth centers where reliable information infrastructure is in place and tertiary education institutions are present. As available trained human resources in Luzon have become increasingly limited relative to rapidly growing demands, more of such enterprises are turning to Mindanao. There is a growing and active community of Mindanao-based ICT practitioners, with strong motivation to cash in on the wide opportunities in the ICT-based industries and techno-entrepreneurship. Widen Mindanaos industrial base Address persistent constraints to further industrial development in Mindanao. Industry, composed of manufacturing, mining and quarrying, construction and utilities, have lagged behind agriculture and services in Mindanao
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owing to a number of persistent constraints. With its largely agriculture-friendly natural environment, agri-based industries will continue to dominate manufacturing activity in Mindanao for years to come. Non agriculture-based manufacturing remains hampered by short-term impediments such as a generally negative peace and order image due to localized conflicts, continuing infrastructure inadequacies especially lack of electric power, and long-standing governance problems. Until dramatic improvements are achieved on these, manufacturing in Mindanao will remain primarily agriculture- and fisheriesbased (i.e., agricultural processing, fish canning), particularly in the short to medium term. While mining has long been seen as a potential growth driver for the Mindanao economy, persistent issues on adverse environmental and social impacts prevent the industrys development full throttle. Moreover, Mindanao does not have complete control over the development of its mineral resources inasmuch as these are owned and managed by the State. Mining industry development strategies for Mindanao are therefore tied to national strategies. Given this, Mindanao must unite to support and push for strategies for the mining sector that serve the greatest good for the greatest number of Mindanawons. Meanwhile, construction activity is a function of overall economic growth and public investment levels, with the latter persistently hampered by tight government finances. Similarly, utilities development is constrained by public finances and the attractiveness of the investment climate as influenced by peace and order and governance concerns. All these suggest that unleashing Mindanaos further industrial growth will require the following measures in the short to medium term: Provide for Mindanaos long-term energy needs and fill in remaining gaps in transport and communication infrastructure to support further industrialization in Mindanao (discussed more fully in Chapter 9). Secure a definitive political settlement with the MILF and NDF, and satisfactory compliance with the FPA with MNLF (Chapter 5), to pave the way for heightened confidence in Mindanaos business prospects. Address barriers and deterrents to entry arising from undue concentration of local economic power, especially where local economies are dominated and controlled by powerful political families. Overcoming this reality in the current political economy will be a complex and long-term endeavor that should start with enactment of a strong competition law by Congress. Pursue aggressive confidence building efforts on all sides of the mining debate, with the goal of securing sufficient consensus upon which to move forward on the agenda for growth and development of a responsible mining industry. To this end, an updated mineral resources inventory for Mindanao must be considered in the Mindanao-wide Comprehensive Land Use Plan proposed in Chapter 8. Based on this, a Responsible Mining Development Plan for Mindanao should also be formulated with participation by all stakeholders, which, together with the Mindanao CLUP, should guide all subsequent mining applications in Mindanao.
ensure faithful compliance by mining firms with the requirements of responsible mining, through a tight monitoring and evaluation system jointly undertaken by MGB, DTI and MinDA, with active participation of civil society. Work must also be undertaken to improve the appreciation of and understanding by LGUs, IPs and communities of mining processes, their consequences, costs, benefits, etc., to avoid having to rely solely on proposals and information provided by investors. This will equip them to better negotiate for fair terms prior to granting of permits and the free prior informed consent (FPIC) required by law. Plug the gaps, rectify flaws and clear conflicts with other laws in the legal framework for the mining industry, including defining and fixing a fair fiscal regime for MPSAs and FTAAs, and resolving conflicting provisions with the Local Government Code and the Indigenous Peoples Rights Act. Foster investments in domestic processing of minerals and manufacturing of metals towards greater value adding and stronger vertical and horizontal integration within the industry sector. The legal framework may provide substantial incentives that may be compounded at every stage of further processing, especially of metallic ores; and disincentives for export of raw mineral ores. Rectify policy impediments (e.g., provisions in the ePIRA Law; energy pricing policies) that inhibit private investments in power generation in Mindanao (Chapter 9). Undertake purposive efforts to help reinvigorate, revive or find alternative uses for the facilities of defunct or moribund industrial projects around Mindanao, where warranted, such as the former National Steel Corporation (now Global Steel Inc.) in Iligan; PICOP in Bislig, Surigao del Sur; Philnico in Nonoc, Surigao del Norte; and others.
Box 7-2
Another example would be further value-adding facilities (i.e., minerals processing, smelters, metal manufactures) that may become attractive once mining investments proceed at full throttle upon satisfactory resolution of issues attendant to the sector. Pursue win-win approaches towards ecological integrity and economic development. Adopt a green growth and green economy approach toward sustainable production and consumption now finding growing international support.46 Mindanaos extremely rich endowment of natural wealth cannot be effectively conserved unless environmental protection is seen to serve not only the common good, but is privately beneficial as well. This entails a departure from the grow now, clean up later paradigm, to one where both economic and environmental ends are both served. The initiatives below will move Mindanao in this direction. Formulate and adopt a Mindanao-wide integrated coastal resource and fisheries management program for decentralized implementation. Given Mindanaos archipelagic character and the importance of planning for Mindanaos future on the platform of its natural resource base, this planning exercise is an important first step towards achieving a win-win for Mindanaos economy and environment. Capacitate LGUs to be the front-line stewards for effective integration of environment and the economy. This starts with the formulation of comprehensive development plans (CDP) and comprehensive land use plans (CLUP) that embody the above win-win approach to sustainable development. This is best achieved through a participatory mode of planning through a local development council that has meaningful non46 See, for example, UNESCAP 2006.
Anticipate industry development opportunities within the BIMP-EAGA framework, wider international market trends, and domestic market developments, given Mindanaos particular endowments and potentials. While the above address constraints on the supply side, strategic attention needs to be given to trends on the demand side, in order to maximize opportunities once the supply-side constraints are overcome. At the BIMP-eAGA and international context, purposive economic intelligence and strategic analysis need to be undertaken to identify the types of industries that Mindanao should best invest in for the future. This will be determined by strategic positioning that our ASeAN neighbors may already be taking (e.g., industrial development initiatives in Sabah and Sulawesi), along with explicit directions agreed in multilateral forums such as the various ASeAN official meetings and BIMP-eAGA member country consultations. The direction in this context must be industrial complementation to avoid costly excess capacity in competing industries. In the domestic context, internal developments especially on regional development trends would determine the kinds of industrial opportunities that would arise for Mindanao. For example, further expansion of the RORO nautical highway system would imply the need for more sea craft, suggesting that full-scale investment in a shipbuilding industry to service these requirements as well as the export markets could be warranted.
government membership and participation, as mandated by the Local Government Code (Chapter 8). These plans must begin with careful stocktaking of the natural environment and its carrying capacity, and must incorporate requirements for climate change adaptation and disaster prevention, mitigation and management, which must likewise be integrated into the physical framework plans of the Mindanao regions formulated by Regional Development Councils/NeDA Regional Offices. LGUs capacities to enforce environmental laws and regulations must likewise be strengthened, including regulation of small-scale mining firms as provided by law, and to mediate and resolve attendant social conflicts. environmental regulatory functions need to be increasingly devolved to LGUs in close coordination with and under supervision by DeNR. In particular, LGUs need to institutionalize registration and accreditation (at provincial level) of small and medium scale mining enterprises in order to enforce strict adherence to socially and environmentally responsible mining practices. These capacity-building efforts for LGUs would be best pursued in a partnership among DILG (through the Local Government Academy), NeDA, DeNR and the academe. Institutionalize and uphold government-civil society partnership in the enforcement of environmental laws all throughout the supply chain. The partnership between the Caraga Council for Peace and Development (CCPD) and the Philippine National Police (PNP) to thwart illegal logging in the area is an example of such cooperative work to protect the environment. Develop, promote and institutionalize mechanisms for payments for ecological services (PES). Already widely practiced in various countries including the Philippines, PeS arrangements involve outright payments made by entities benefiting from environmental services (e.g., hydroelectric power plants benefiting from watershed protection by upland communities) that are in turn channeled to those undertaking
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Box 7-3
environmental protection activities (upland communities in this case). It is also exemplified by divers fees collected from recreational divers, whose proceeds are in turn channeled to local community groups directly working to preserve the marine 47 environment. Wherever there are clear beneficiaries from environmental protection activities (e.g., tourists, production enterprises dependent on a healthy environment), there could be opportunities for PeS arrangements that can make environmental protection activities especially by local communities literally pay. Such schemes can be applied in environmentally sensitive areas such as Lake Lanao and the Mt. Apo watershed to ensure natural resources and environment protection while providing a viable source of income for upland and rural communities. A specific PeS initiative would be to expand the menu of possible conditionalities for conditional cash transfer (CCT) programs, to include participation in community environmental protection activities among activities required of transfer beneficiaries, especially in (but not necessarily limited to) poor upland communities. Foster a keen sense of social and environmental responsibility among enterprises of all scale levels (micro, small, medium and large). This can involve a carrot-and-stick approach by LGUs and concerned national government agencies that involves meaningful incentives (fiscal or otherwise) for good corporate social responsibility (CSR), along with punitive sanctions for negative behavior. This will also entail providing an enabling environment for active civil society participation in advocacy, IeC, monitoring and enforcement activities. Good corporate citizenship must eventually become the norm rather than the exception in the Mindanao business sector. Strictly enforce prohibitions on illegal trade of wildlife and endangered species, with active citizen participation. A system of effective rewards for reporting illegal trading of wildlife and endangered species could be instituted, while enjoining active partnerships with civil society groups in collaborative efforts to curb the practice. Encourage community-led and private sector-led investments on environmental protection projects, including those eligible for carbon credits under the Clean Development Mechanism of the Kyoto Protocol. Find creative applications in Mindanao of market-based instruments for environmental protection now in use elsewhere, such as cap-and-trade marketable permits, pollution taxes, appropriate resource extraction fees reflecting true resource costs, CO2 emissions tax, and tax deductions/credits for enterprises that mitigate their adverse impact on the environment.
In sum, the future of Mindanaos economy rests on the future of its environment. Its economy and environment are inextricably integrated more so than in the rest of the country and it is only through a development strategy that upholds economic and ecological integration that Mindanao can sustain its people indefinitely into the future. And unless the translation of this integration into human benefit is pursued via inclusive wealth creation, the growing gaps and inequities that would ensue will undermine the very sustainability of economic growth, and will only plunge the island-region back, and possibly deeper, into the state of conflict and instability that has marked much of its history.
47 The best known example of this is the system adopted by the municipalities of Mabini and Tingloy in Anilao, Batangas.
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was composed of the large five provincial districts of Davao, Cotabato, Lanao, Zamboanga and Sulu, roughly corresponding to the expanse of the combined territories of the Sultanates of Sulu and Maguindanao and the Pat a Pogampong ko Ranaw. It was not until 1957 that regular elections were held in these political units. In the course of their evolution, these special political units eventually lost their territorial character, both through the process of subdivision into provinces and municipalities and through the creation of administrative structures to look after the non-Christian population. Thus, the Bureau of Non-Christian Tribes, the Commission on National Integration, the Office on Muslim Affairs (OMA), the Office of the Northern Cultural Communities and Office of the Southern Cultural Communities came into existence to look after the welfare of their designated clientele. The OMA has since been replaced by the National Commission on Muslim Filipinos (NCMF), which was enacted into being by Republic Act 9997 on February 18, 2010. The NCMF is a government agency given full powers to execute programs and mandates related to the welfare of Muslim Filipinos, who, though most prominent in Mindanao, are now spread widely all over the country. There are now six administrative regions in Mindanao: Region IX, based in Pagadian City; Region X, based in Cagayan de Oro City; Region XI, based in Davao City; Region XII, based in Koronadal City; Region XIII or the Caraga Region, based in Butuan City; and the Autonomous Region of Muslim Mindanao, based in Cotabato City. (Figure 8-1). In time, these administrative regions also became the platforms for regional economic development and security arrangements, especially with the creation of the Regional Development Councils (RDC) and the Regional Peace and Order Councils (RPOC). The ARMM was created by the Philippine government in 1989 through the enactment of RA 6734 (The Organic Act of the ARMM). The law was later amended by RA 9054 in compliance with the provisions of the Final Peace Accord undertaken by the Philippine government with the Moro National Liberation Front (MNLF) in 1996. The Philippine Constitution recognizes the autonomy and the devolution of powers given to the ARMM. The establishment of ARMM restored the territorial character of governance to the Moros, indicating official government recognition of their special governance requirements, beginning with the Tripoli Agreement of 1976. This was the first government-acknowledged definition of the right to self-determination of the Moros, both in territorial and administrative terms. While the ARMM from its creation was subject only to the direct authority of the President, President Gloria Macapagal-Arroyo issued Administrative Order 273 in December 2009 transferring the power of general supervision over ARMM to the Department of Interior and Local Government (DILG). The ARMM is unique in the regional configuration, as it enjoys executive and legislative powers not only in local affairs, but also in all devolved line agencies. The power also includes legislation in local elections so long as it does not impinge on the laws governing the national elections. The powers granted to the ARMM were governments deliberate effort to respond to Bangsamoro demands for self-determination and territory.
ChAPTeR 8
Source: NSCB
and subsistence farming. Some date the starting point of the Muslim land conflict to the advent of American colonialism at the turn of the 20th century wherein the conversion of large plots of land into cattle farms and sugarcane and pineapple plantations was allowed. This transformation generated substantial social dislocation of native populations, for whom the loss of traditional livelihood had been generally inadequately compensated within new economic structures.48 The inequitable access to natural resources in Mindanao led to long-standing strife, social displacement and economic retardation for many inhabitants of Mindanao. The poorest rural people have limited access to important natural resources, such as forests and pastures. Policy overlaps and inconsistencies engendered by laws relating to natural resource management complicate the governance challenge over conflicting land claims. Over the years, various policy and legal initiatives have attempted to remedy resourcebased problems. While these attempts are a step forward in mitigating resource conflicts, incompatible provisions in different laws have arisen. For instance, provisions of IPRA and the Philippine Mining Act of 1995 disagree with respect to the mandated process and the authority over resource permits and land use development. There is also a conflict between IPRA and the Integrated Protected Areas Act regarding authorities mandated over land use development (i.e., who determines which areas are to be set aside as no-touch zones, which are considered ancestral domains) and over regulating the use and transport of natural resources found within ancestral domains that are also
48 ICE Case Studies, Number 118 May 2003
considered as protected areas. Similarly, legal conflicts over land use have arisen due to conflicting provisions under the Protected Areas Act and the Mining Act, as it is not clear which law will take precedence if a given forest area is deemed critical to maintain biological diversity and ecological services and, at the same time, contains valuable mineral deposits. The Local Government Code vests local governments with regulatory powers only over smallscale mining operations but not over large-scale ones. even then, local governments usually lack the ability and capacity to exercise such regulation, and to negotiate terms with big mining corporations. Finally, another long-standing challenge is the need for political settlement with the Communist Party of the Philippines-New Peoples Army (CPP-NPA), which maintains 29 guerrilla fronts mostly located in eastern Mindanao. Government needs to confront the roots of the Communist rebellion and reconcile strategies in addressing them.
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to the presence of several aggravating factors. These include the proliferation of armed groups, political warlordism, undue domination of local business by political leaders, the Muslim secessionist movement and extreme poverty. The lack of economic opportunities contributes to conditions wherein poverty-stricken communities help to prop up political warlords, who in turn provide some means for employment or an income, including through criminality and banditry. In particular, political warlordism, a product of a weak state, has perpetuated corruption in the region, which, in turn, arrests political and economic stability. Money lost to corruption could have been spent on basic education, primary health care and alternative livelihood initiatives in grassroots communities in Mindanao. The creation of the ARMM presented a significant opportunity for Muslim Mindanao to achieve self-determination and selfgovernance, yet perceptions on the record of the ARMM experience are mixed at best. In particular, some studies49 on ARMM showed that the region is faced with governance challenges that would require capacitating the region in the areas of transparency and accountability, and efficiency to deliver basic services. As highlighted in Chapter 6, a substantial number of Mindanawons possess the lowest capacity among the Philippine population to access the means for emancipation from the cycle of poverty. Inevitably, most of the provinces with the lowest human Development Indices can be found in Mindanao, particularly in ARMM. Tawi-Tawi, Sulu and other ARMM areas continue to dwell at the bottom of the latest listings measuring the human conditions in the Philippines. The inability of the ARMM to deliver basic services has been attributed to its almost total dependence on the central government for budgetary support (LGSPA 2007). And as with most local government units, the ARMMs Internal Revenue Allotments are often tied to political considerations, a practice that is particularly prevalent in Mindanao. All these have led to the observation that rather than be the vehicle for Moro self-determination it was meant to be, ARMM has become even less autonomous than local governments such as cities, towns, and provinces. It has become, in effect, more dependent on the national government than any other political subdivision in the country. (Bacani 2005). One major challenge in resolving the peace and order situation in Mindanao is the lack of state and local capacity to intervene at critical points of escalation of conflict. Deep-seated historical and cultural grievances between and among clans, as exemplified by rido; political leaders, military units and insurgent groups have the potential to trigger armed confrontations on the ground that have little to do with the larger state-insurgency conflict. This underscores the need to strengthen the capacity of civil society and community-based leaders to manage conflict, arrest their escalation, and formulate effective responses and interventions. The growing dynamism and the increasingly active response from civil society groups in Mindanao are a potent instrument that can be utilized towards this end. Ultimately, Mindanaos complex governance challenges cannot be resolved with a governance model that appears to have
been built on a linear, cause-and-effect frame of reference. In reality, the conflict is a function of interplaying historical, cultural, political and economic interests that clash due to their sheer diversity. It is a mosaic of conflicting interests that all stakeholders must endeavour to reconcile in order to lessen the debilitating effects on Mindanao society. In many cases, effective governance in Mindanao is impeded not so much by the lack of developmental vision and plans, but rather by too many levels of actors and complex institutional arrangements, apart from capacity deficiencies that make implementation slow, deficient and at times non-existent.
government as espoused in the Local Government Code of 1991, endowing LGUs with due responsibilities and authorities, and the concomitant resources with which to exercise them.
Where We Want To Go
Vision
The Mindanawons vision of governance 20 years hence is described as:
A culture-sensitive, self-reliant, responsive and accountable governance with each political unit at various levels able to assert self-determination, while integrated by a soundly defined relationship of complementarity with each other and with the national government.
Mindanao-wide Coordination
Recognizing the importance of a governance mechanism that would coordinate government development initiatives for Mindanao across its administrative regions, President Corazon C. Aquino created the Mindanao economic Development Council (MeDCo) through executive Order No. 512 issued on March 19, 1992. MeDCos mandate was to promote and coordinate the active participation of all sectors to effect the socio-economic development of Mindanao under a wholistic and integrated approach. MeDCo was likewise tasked to address the need to promote and strengthen interregional linkages to ensure the integrated viability of the programs and projects in Mindanao, with the local government units as frontline entities that will realize the development of specific geographical areas. To further strengthen MeDCos coordinative mandate, Congress upgraded it into the Mindanao Development Authority (MinDA) in 2010 by virtue of R.A. 9996, which was considered a major step towards effective Mindanao governance. MinDA is envisaged by the law to address the need for a coordinated and integrated approach to island-wide development challenges, seen to have been a persisting gap unfilled by MeDCo owing to its weak legal mandate and/or existing coordinative mechanisms of government. It is thus an example of a sub-national governance mechanism envisioned to forge a working partnership with the national government on one hand and the regional and local government structures on the other, as it charts and guides efforts to secure the future of Mindanao. MinDA has the potential to be the formula for a successful island-wide governance framework that ensures political stability, conflict reduction and increased cooperation towards peace and development. 50 Achieving the envisaged effective coordination of Mindanaowide initiatives remains an outstanding challenge, inasmuch as other similar coordinating bodies albeit with more limited geographical or sectoral scope have been existing and operating with varying degrees of effectiveness, even prior to MeDCo and MinDA. These include the Regional Development Councils, NeDA Regional Offices, along with the Mindanao regional offices of other central government line departments and agencies, ARMM, Southern Philippines Development Authority (SPDA), among others. Deliberate efforts are thus needed to clarify and affirm MinDAs institutional mandate and authority relative to such other coordinative bodies. All these must be considered in relation to and consistent with the devolution policy of
Culture sensitivity means recognizing the distinct cultural identity and history of the people of Mindanao, particularly the Lumads and Bangsamoros, in policies, programs, systems and processes; and in all sectors. Self reliance refers to the need to put in place governance mechanisms designed to responsibly and sustainably harness the natural richness that abounds in Mindanao. The objective here is to chart Mindanaos development in a way that puts a premium on self-reliance and minimal state dependence. Responsive and accountable means that leaders at all levels of governance respond to actual needs of their constituents, and are accountable to the citizens in their respective political units.
49 Rasul (2007) and Bacani (2005) 50 http://www.medco.gov.ph/medcoweb/uploads/MinDA/MinDA_Law.pdf (Accessed on August 22, 2010).
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Because of the particular socio-political and economic conditions obtaining in Mindanao that make the region especially vulnerable to self-serving politics and a culture of impunity, it is imperative to institutionalize measures for enhanced accountability. Soundly defined relationship of complementarity with each other and with the national government refers to the idea of internal sovereignty whereby LGUs can decide to cooperate and affiliate themselves with each other based on shared needs and challenges. These should operate with the least intervention from the national government, while the state retains traditional authority over foreign affairs, national security and currency, among others. By 2020, Updating and faithful implementation of well-consulted CDPs and CLUPs incorporating climate change adaptation measures is undertaken by all LGUs as a regular responsibility. 100% of Shariah courts are operational with firm budget allocation. 90% voter turnout is achieved in Mindanao. 100% of Mindanao LGUs have IP representation in their legislatures. Working alliances or formal collaborative mechanisms among municipalities are common, and present in at least 75 percent of Mindanao provinces. Local development councils with active and meaningful civil society and private sector participation are a standard feature in the direction-setting and policy decision-making of all Mindanao LGUs. Most of Mindanao LGUs have embarked on PPP projects for infrastructure, service delivery or local development initiatives for the general welfare.
National government confines itself to an overall steering role while empowering and capacitating LGUs to do the rowing, i.e., vest them with the responsibility and authority to translate broad national objectives into concrete initiatives at the local level. This entails expansion of LGUs powers, prerogatives and resources along with responsibilities and accountabilities, especially in agriculture, economic development and health. National government departments/agencies take explicit responsibility for providing technical guidance to and building the technical capacities of the LGUs in their respective sectoral concerns. This should be part and parcel of their steering functions that include defining broad directions, setting standards and enforcing them through their regulatory functions, among other core 51 functions. As such, they ought to be among each sectoral agencys performance commitments and major final outputs/outcomes (MFOs). National government and Mindanao LGUs cooperate in running capacity building programs that cover various governance areas such as planning, policy analysis, formulation and implementation, program and project identification and management, and monitoring and evaluation; and specific skills such as resource generation to support self-defined development projects. Special attention must be given to ARMM LGUs to allow them to catch up with the more progressive areas of Mindanao. Sectoral budgets uphold and promote subsidiarity and the primary role of LGUs and communities in development initiatives. Downloading of budget resources directly to communities and allowing the community and local governments to undertake planning, program/project identification and implementation have yielded positive results in many poor areas of Mindanao52 under the Kalahi-CIDSS programs of past years. The approach may be further improved and upscaled to improve self-governance in line with the principles of selfdetermination and self-reliance. LGUs assert their right to define the course of their social and economic development including formulation of their strategy for resource generation and mobilization (see Chapter 6). For this purpose, policies and programs geared towards strengthening of LGUs and local officials as provided further below shall be designed according to peculiar needs and implemented in a sustained manner.
2.
Goals
A participatory and culture-sensitive Mindanao governance and political framework that asserts self reliance and internal selfdetermination, marked by: empowered, self-reliant, accountable and responsive LGUs; A stable, autonomous, self-reliant and effective governance mechanism for the Bangsamoro people that is widely acceptable and finds active support from its citizenry; effective coordination and monitoring mechanisms at the Mindanao-wide, regional and inter/intra-provincial levels; An empowering relationship with national government that is supportive of local development plans and initiatives; Indigenous peoples with the ability to exercise selfdetermination in managing and governing their respective ancestral domains, within a framework that respects boundaries, history and cultures; Wide respect for the rule of law, human rights and hallmarks of good governance, such as transparency and social accountability; An active and empowered citizenry and effective law enforcement that maintains integrity and a high regard for human rights, working together to break the backbone of corruption, criminality and impunity in Mindanao.
3.
4.
By 2030, All Mindanao LGUs are all considered climate changeresilient, and guided in their work by up-to-date CDPs and CLUPs that are widely known and supported by the local citizenry. 100% of Shariah courts are operational with firm budget allocation. 95% voter turnout is achieved in Mindanao. 100% of Mindanao LGUs have proportional IP representation in their legislatures. Working alliances or formal collaborative mechanisms among municipalities have become a norm across Mindanao. All LGUs regularly convene and make effective use of their local development council, with active and meaningful civil society and private sector participation. The wide majority of LGUs consistently depend on PPPs for infrastructure, service delivery or local development initiatives for the general welfare.
5.
6.
7.
8. 9.
Targets
By 2016, All Mindanao LGUs comply with the LGC and possess current comprehensive development plans (CDPs) and comprehensive land use plans (CLUPs) that incorporate climate change adaptation measures. 80% of Shariah courts are operational with firm budget allocation. 85% voter turnout is achieved in Mindanao. Most (at least 60%) of Mindanao LGUs have IP representation in their legislatures. Working alliances or formal collaborative mechanisms among municipalities are present in at least half of Mindanao provinces. All LGUs regularly convene and make effective use of their local development councils, which have active and meaningful civil society and private sector participation. A significant number of LGUs have embarked on PPP projects for infrastructure, service delivery or local development initiatives for the general welfare.
These strategies are further elaborated below. Strengthen and empower Mindanao LGUs and communities Have LGUs exercise key functions that are best exercised by them given their better vantage point and competence, aside from those already delegated to them by the Local Government Code. These additional functions include management of disaster risk and response, environment and natural resources, and financial resources. Fully making LGUs responsible and accountable for these functions, provided that necessary technical and financial support is extended, is in keeping with the principles of subsidiarity, self-determination and self-reliance. In support of the above, the following policy initiatives would be important:
Critical to all these is a sincere, responsive and empowering national government that gives Mindanao the due attention, resources, and authority it needs to shape its future reflective of its peoples aspirations and in accordance with national ideals. This could include openness to changing the current legal and constitutional framework if need be. For example, eventual shift to a federal form of government, a popular sentiment expressed in most consultations, may yet prove to be the appropriate long-term solution to Mindanawons clamor for self-reliance and self-determination, and achievement of this will require Constitutional amendment.
51 For certain sectoral departments/agencies, these core functions could also include research and development, extension, and international negotiations, as in the Department of Agriculture. 52 Such as in Siayan, Zamboanga del Sur, which as of 2003 was the poorest municipality in the country, but has since been lifted out of this dubious distinction.
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Ensure the preparation of a sound, widely consulted and well accepted Mindanao-wide comprehensive land use plan (CLUP) that emanates from and informs local land use plans. This implies that land use plans at provincial and municipal levels must also be prepared, and that all such plans are vertically integrated and consistent with each other. It also entails capacitating LGUs in preparing CLUPs, and in formulating and implementing widely-consulted Comprehensive Development Plans (CDPs) that incorporate appropriate climate change adaptation measures. Build up local revenue generation capabilities via creative taxation policies and mechanisms within the LGUs taxation powers; collecting realistic user fees for services; and catalytic economic enterprises, with a view to reducing overdependence on the IRA. Strengthen local financial management via mechanisms for promoting proper fund utilization, management and auditing (e.g., LGUs to aspire for ISO 9001-2008 certification). Adopt an entrepreneurial approach to governance that involves exercising local governments corporate powers in order to spur more business and social enterprises. To this end, LGUs must streamline their own processes (the Quezon City experience described in Box 8-1 is illustrative) and create a business-friendly environment that encourages local investment and entrepreneurship, apart from attracting external investments. This includes streamlining the processes for obtaining environmental clearances and water permits to improve enabling conditions for investment and business while protecting the natural environment. Ensure the representation and participation of indigenous peoples at all levels of the local development councils. A seat for IP representation must be provided in the Sanggunian and other bodies, following traditional selection mechanisms for representation. Corollary thereto, adequate budget and capacity building must be provided for IP participation. Make wider use of information and communications technology (ICT) in local governance for effectiveness and transparency, especially in financial management. Harness and build up social capital via better mechanisms for effective information sharing, consultations and dialogues with affected communities, participatory monitoring, capacity building measures, and, most importantly, faithful enforcement of relevant local laws. Partner with the private business sector and civil society in various local requirements and initiatives such as payments for environmental services (see Chapter 7), ICT development and computerization of government operations, and monitoring and evaluation of government accomplishments and expenditures. Work for the amendment of the Local Government Code to address the following long-standing issues:
Distribution and allocation formulae for the Internal Revenue Allotments. Situs of taxation to provide a rightful share especially for areas where business operations are extractive, such as in plantations and mining areas. Widen the eligible base for local taxation by revisiting the national-local distribution of the tax base, to achieve a fairer distribution and permit wider taxing latitude for LGUs. enact enabling legislation for the Constitutional prohibition against political dynasties. Review the term lengths of elected local officials and, if warranted, establish measures to encourage longer-term planning perspectives among local government leaders. Address the weaknesses of the ARMM government to achieve an effective autonomous governance mechanism for the Bangsamoro people.
Box 8-1
Pursue a broad and coordinated partnership towards strengthening the various instrumentalities of the ARMM government to strengthen capacity and integrity, improve responsiveness and build accountability. A concerted effort must be mounted for a customized and sustained capacity building program for ARMM. external development partners, civil society, private sector, national government, and ARMM constituents need to join forces towards this singular goal of making ARMM the effective vehicle for Moro self-determination that it was designed to be. Undertake a deliberate leadership development strategy and program that will groom and sustain a pipeline of a new generation of progressive leaders for Muslim Mindanao. This can be tied to the purposive scholarship program for Mindanao students described in Chapter 6. Tighten Mindanao-wide coordination with a view towards eliminating duplication and overlaps and maximizing complementation. As the island-wide coordinating and promoting mechanism, MinDA must spearhead or work towards effective governance through the following: Review, and if warranted, rationalize or establish Mindanaowide coordination or institutional mechanisms to provide impetus for coherent and inclusive socio-economic development and address the multiplicity of concerns that have slowed social and economic progress in Mindanao. These institutions should be properly and consultatively designed to provide the effective and efficient delivery of basic services that will address widespread poverty and mitigate the ravages of inequitable and unjust distribution of natural resources, the effects of armed conflict and multi-ethnic and cultural diversity.
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Effect and maintain close coordination and synergies among agencies and instrumentalities serving Mindanao, especially those with closely-related or similar functions, including Regional Development Councils, department-level agencies, NeDA, SPDA, LGUs and other related agencies, in the interest of efficiency in operations while upholding clear accountability. This would entail providing a coordinated and integrated approach in the formulation and implementation of various Mindanaowide, inter-regional development plans, programs and projects. In particular, close coordination among related agencies will prevent policy inconsistencies and provide for a more synergistic response to the challenges. Pursue, in cooperation with OPAPP and the ARMM government, the mainstreaming of MILF, MNLF and CPP-NPA as active partners in Mindanao development by providing the environment and mechanisms to facilitate their engagement. This is premised on the attainment of an honorable and lasting peace settlement between the government and these groups. Bring together a Mindanao-wide monitoring and evaluation mechanism from various M&e systems already in place, and regularly provide the results to key users such as Congress, NGAs, LGUs, research institutions, business and the civil society community. Formulate and undertake a sustained and comprehensive capacity and team building program with concerned agencies and instrumentalities on above-cited development areas. The national government has a crucial role in improving governance in Mindanao. Among other things, it must undertake the following: Harmonize conflicting provisions of resource management and environmental laws, particularly with regard to permitting and licensing, identification of beneficiaries and the like. This must take into account both traditional and non-traditional concepts of land use and ownership. Provide impetus and support for rationalizing and reforming the Mindanao-wide bureaucracy. This rationalization would be geared toward improvement of service delivery, improved coordination and generation of savings from streamlining of functions. Facilitate inter-LGU cooperation and collaboration Provide an enabling environment for LGUs to freely associate with one another based on common objectives, or to confront mutual concerns that require synergistic responses. The PALMA Alliance of five municipalities in North Cotabato has exemplified the significant benefits of tapping complementarities and pooling resources among LGUs faced with common challenges, in this case on road infrastructure development. Similar alliances among Mindanao LGUs have been established in jointly undertaking natural resource management, as in the Lanuza Bay Development Alliance; and disaster risk mitigation, as in the Allah Valley Landscape Development Alliance (see Box 8-2). Such inter-
LGU collaboration could conceivably evolve into higher forms of alliances covering a broader range of functional areas across economic, environmental, and human development priorities. Specific measures to encourage and develop such collaborative arrangements include the following: Provide fiscal incentives for inter-LGU cooperation and pooling of resources to achieve complementation and synergies while ensuring participation of affected stakeholders who may reside within different administrative units of governance. Incentives may be in the form of performance-based national government grants, resource matching schemes, etc. to LGUs undertaking joint collaborative initiatives that result in greater efficiency and effectiveness. Institute appropriate rewards and awards for exemplary collaborative LGU initiatives. Provide the legal framework for possible evolution of LGU collaboration into higher forms of integration (e.g. federation or mergers). Optimize the mix of modern and traditional elements of governance Combine modern and traditional customary elements of governance towards responsive administrative, judicial and legislative systems. With its diverse cultures and traditions, Mindanao lends itself to a combination of traditional, customsbased governance mechanisms as well as modern governance systems. This combination must be optimized in a way that is respectful of history and culture, while being responsive to contemporary governance challenges. Specific initiatives in this regard would include institutional strengthening of the Sharia justice system, integration of customary laws as an essential component of indigenous conflict resolution mechanisms, integration of traditional mediators into the judicial system, and permitting the use of local languages in official forms, transactions and communications. Work to institutionalize the above in areas where traditional culture is relatively strong and stable. Legislation to this effect could be enacted based on practical experiences in particular areas and situations. Furthermore, law schools should create room in their curriculum for such adaptive legal systems. Reform the electoral system to improve quality of candidates and to ensure electoral integrity Ensure that automated elections work credibly, while creating space for the appropriate combination of traditional and modern voting systems in heavily traditional areas of Mindanao. Work for the emergence of quality candidates and leaders through deliberate leadership training programs especially for the youth, in addition to upgrading and widening accessibility of quality education in general.
Box 8-2
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Promote civic citizenship in schools and provide wide access to complete information on candidates and on the electoral process. help voters connect their choices to higher aspirations rather than base these on popularity, kinship or debt of gratitude. Ensure the exercise of free will in voting by eradicating warlordism and arms proliferation. A sustained and relentless effort in this regard could be mobilized with the active participation of all stakeholders in Mindanao. It is only when elections are held in an environment that is free from intimidation, fear, undue influence and fraud, that the ballot will truly reflect the sovereign will of the electorate. Provide a sustained capacity building program for elected leaders through leadership trainings and academies, focusing on the development of long-term vision and the enhancement of negotiation and conflict management skills. Provide a favorable enabling environment for harnessing and scaling up creative public-private partnership schemes Make partnership an end-to-end feature of governance and development work, spanning planning all the way to monitoring and evaluation. Uphold, encourage and give due course to development initiatives from the private sector, and to peoples participation in all such processes through civil society organizations. The Mindanao Technical-Vocational education and Training (TVeT) Roadmap, a planning initiative of private TVeT providers is a worthy example of private partnership to address the front-end (i.e., planning) of development work (see Box 8-3). At the other end, monitoring of government performance and the effectiveness of its programs is best undertaken by detached and independent third parties. Close involvement of civil society and the private business sector in such work is thus both desirable and imperative. Clarify, expand and strengthen the legal framework governing and facilitating such partnerships beyond those covered in the BOT Law, to cover such partnerships for human development and environmental initiatives, among others. For example, unnecessarily rigid financial rules that constrain access by NGOs to public funds would need to be relaxed. Undertake deliberate efforts for social preparation, knowledge sharing and capacity building of partners (NGOs and POs, business groups, staff of national and local governments), as well as for leveling perspectives and motivations. effective partnerships do not happen by themselves. They require a convergence in outlooks and motivations, and complementarity in capabilities among the partners involved. Resources must be committed to capacity-building activities, which are public investments that promise multiple payoffs. In particular, building and capacitating partnerships for human development and social cohesion are worthy investments that resource providers would do well to actively support.
Maximize opportunities for citizen participation Faithfully implement mechanisms for citizen participation already enshrined in law. These include the Local Government Code, which provides for Local Development Councils at all LGU levels, as well as laws that created multi-stakeholder bodies with civil society participation, such as the National Anti-Poverty Commission. Upholding these mechanisms is particularly important for Mindanao, where the greatest poverty incidence in the country is found. LGUs must be impelled to make optimal use of local development councils and other multi-stakeholder mechanisms provided by law (e.g., local school boards, Councils for the Protection of Children) at the provincial, city/municipality and barangay levels, and turn them into effective forums for meaningful non-government participation in governance and development processes, and for fostering active multistakeholder partnership initiatives. Institutionalize civil society and private sector representation in key governance bodies and development mechanisms at the Mindanao-wide levels where not yet provided by law. MinDA must set the example by consistently ensuring such representation in all key bodies and tasks undertaken towards implementation of Mindanao 2020. Institutionalize community dialogues as a mode for problem identification, conflict resolution, and community participation in development initiatives. This is particularly important in multiethnic communities. Alternative dispute resolution programs may be used to address specific natural resource sectors and conflicts. Implement upscaled community-driven modes of delivering development services, using the highly-successful Kalahi-CIDSS interventions as models. Strengthen national institutional support mechanisms addressing the welfare of Mindanao people. Strengthen and de-politicize NCIP so that it becomes the effective instrument and structure for the IPs self-governance and development of their ancestral domain that it was meant to be. The idea of building a think-tank or a research institute for comprehensive development of IPs in Mindanao, must be explored, and realized as a support mechanism for consolidating knowledge about IPs. Moreover, the State must guarantee that the Indigenous Peoples Rights Act (IPRA) is fully implemented. This includes prioritizing the full issuance of certificates of ancestral land title and certificates of ancestral domain title within five years. Provide the National Commission on Muslim Filipinos with appropriate levels of budgetary and logistical support in order to be effective in fulfilling its mandate. Appointments to the Commission are critical in the face of the long-standing conflicts in Muslim areas in Mindanao. hence, appointees to
these positions need to be widely acceptable and acknowledged for integrity and competence, in order for the NCMF to be a credible and unifying organization. Clarify and firm up the mandate and authority of the Office of the Presidential Adviser on the Peace Process (OPAPP) vis--vis the Peace Panels formed to negotiate with the MILF and NDF. These various instrumentalities for pursuing peace negotiations need to avoid the confusion and even contradictions in public positions taken in the past, in order to demonstrate
governments sincerity and seriousness in purpose as it seeks a peaceful settlement in the various conflict fronts in Mindanao. In conclusion, Mindanao is well positioned to be the vanguard for a new governance model that would assert true selfreliance and self-determination that could usher in a new era of peace and prosperity for its people. But it will take an empowering national government, dynamic local governments, and a vibrant, united and engaged citizenry transcending ethnic, cultural and political divides for this vision of a Mindanao that is One and Number One to become a reality.
Box 8-3
53 MinTVET is a non-stock, non-profit corporation established in December 2001 to undertake activities that promote upgrading of the quality of technical vocational education and training in Mindanao.
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ChAPTeR 9
Where We Are Now: Situation and Challenges
The four preceding chapters articulated the body of Mindanao 2020: its thematic visions, goals and objectives, thrusts, and strategies. For all of these to materialize, the proper environment and support systems must be in place. This chapter elaborates on these enabling conditions that are critical prerequisites for the thrusts and strategies to succeed in the attainment of the visions and goals, namely, infrastructure, science & technology and research & development, and financing support.
Infrastructure
By definition, infrastructure provides the underlying framework or foundation for a certain system. This section covers hard infrastructure or basic physical facilities and installations, and soft infrastructure or policies, programs, information and institutions that support the development of physical infrastructure. It also covers logistics or flow of goods and services with its corresponding hard infrastructure requirements. Notwithstanding achievements over the past 15 years, a number of policies, programs and projects that were spelled out in the infrastructure agenda of Mindanao 2000 have yet to be realized. Many reasons have been cited but most commonly cited in all the subsectors are the following: Lack of coherent plans (e.g., integrated roads, bridges and logistics; water resource management, etc.) Inadequate government financial resources, which hampered implementation of the strategies, programs and projects. Underinvestment especially by the private sector, attributed to the lack of appropriate policies and incentives for government and private sector partnership. Absence or unclear or inconsistent policies and regulations that impede investments and implementation of development projects such as in the privatization of viable water districts; cabotage law; and below-cost pricing of power. Criminality such as pilferage and vandalism of service infrastructures, and peace and order problems in some parts of Mindanao. Lack of appropriate, updated and baseline data that are necessary in decision-making, such as the quality, quantity and availability of water resources for valuation and pricing purposes.
All these impeded implementation of Mindanao 2000, hence the full attainment of its goals and objectives. An incisive review of where things stand at sub-sector or specific level would thus be instructive for purposes of Mindanao 2020.
54 As estimated by Mindanao Development Authority, based on the DPWH standard of P20 million per kilometer.
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Paved (Km) 1,1659 6,127 5,306 880 1,198 958 869 807 594
Unpaved (Km) 3,759 1,180 2,837 339 519 529 543 561 347
Total (Km) 1.5418 7,307 8,143 1,219 1,717 1,487 1,412 1,368 940
%Unpaved Roads 24.4 16.2 34.8 27.8 30.2 35.6 38.4 41.0 36.9
Source: Land Transportation Office
Utility vehicle registration also grew rapidly but came as far second (21%) in share to total registrations. Meanwhile, the number of buses and trailers declined at a rate of 12% and 4.6% in 2008, respectively. These trends are consistent with the observed shifts in peoples transportation preferences, which favor light vehicles over big ones such as buses and trailers. Many of those who do not take motorcycles prefer utility vehicles because these can take non-regular routes and provide faster service. These have also become popular means of transporting goods and produce. Mindanao does not have a railway system. There is widely expressed desire to build a Mindanao circumferential railway system, but this has not been realized due to its substantial investment requirement that puts to question its economic feasibility. Nonetheless, short run railways in high traffic areas are being seriously considered. A feasibility study for an 82.5 km railway from Cagayan de Oro to Iligan has been completed and is undergoing review for possible external financing.
is three times that of Manila to hongkong (Llanto and Basilio; 2005); and (c) perceived lack of safety due to aging vessels and numerous maritime accidents as industry protection (again under the cabotage law) dampens impetus for modernization and better services. Meanwhile, there has been a significant shift to the use of the RO-RO system, which offers faster and cheaper transportation services. except during the period affected by the world financial crisis, cargo traffic has been robust. It was steadily increasing at an annual rate of 2.5% from 1999-2007 (Figure 9-4), twice the rate for the whole country in the same period (JICA, 2009). Foreign cargo traffic has been driving the trend due to increased trade with foreign countries that are generally located north of Mindanao (e.g., USA, Japan, China, South Korea). Domestic cargo movement through the use of traditional shipping has been on the downtrend, despite growing trade with Luzon and Visayas, due to heightened use of the RO-RO. Trends in containerized cargos are likewise steadily moving up, seemingly unaffected by the financial crisis (Figure 9-5). These trends may be attributed to economic development and containerization improvements in Mindanao Container Terminal (MCT) in Cagayan de Oro and Davao/General Santos ports (JICA, 2009). The JICA study forecast cargo traffic to grow annually between a conservative 35.4 million metric tons (2.5% growth rate) to an optimistic 101.6 million metric tons (10%) in 2030. Containerization is projected to reach 71% by then. All these have a bearing on the appropriate transportation and logistics infrastructure for Mindanao over the next 20 years. The completion of the Strong Republic Nautical highway (SRNh) largely contributed to the decline in the use of regular ships for passengers and cargo. The SRNh allows continuous travel through land and water, and makes it possible for private and public land vehicles to travel cheaper and more conveniently in and out of Mindanao through the use of Roll-On, Roll-Off (RO-RO) facilities. Figure 9-6 shows the routes covered by the three nautical highways (eastern, Central and Western).
Philippines (%) Fair-Good 60.5 65.8 62.1 Poor-Bad 39.3 34.2 37.9
Mindanao (%) Fair-Good 61.1 60.5 60.8 Poor-Bad 38.9 39.5 39.2
Water
The Philippines archipelagic nature partly explains the highly unequal development of its parts. Connecting the islands and developing the soft (e.g., governance and policy) and hard (e.g., ports and feeder roads) infrastructure is thus a critical strategy. Such connection, however, must maximize the use of waterways since water transportation, especially of cargo, is cheapest on a per unit weight basis. It is also worth noting that Filipinos, especially those from Mindanao are traditional ship builders, seafarers and maritime experts. There are currently 12 base ports, 15 terminal ports, 47 other national or municipal ports and 64 private ports in Mindanao. The major ports for cargo are Davao, General Santos, Cagayan de Oro and Zamboanga. As of 2008, all major base ports are already International Ship and Port Facility Security compliant. Despite the large number of ports and international standards of some of them, ship calls have been on the decline in recent years (Figure 9-2). There are a number of reasons for this trend, many of which reinforce each other, such as (a) inappropriate policies (e.g., cabotage law); (b) high shipping and handling costs, manifested in how the cost of freight per nautical mile from Manila to Davao
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Figure 9-4 Cargo Throughput 2001-2009 (million MT) Figure 9-2 Ship Calls in Mindanao 2001-2009 (in thousands) Figure 9-3 Passenger Traffic 2001-2009 (in millions)
Source: DOTC
Source: DOTC
The policy environment for RO-RO was improved by, among others, deregulating fare rates, lifting distance limitations, and maximizing private sector participation. The new policy regime sped up the development of the nautical highways, which in turn spurred many economic activities that boosted growth and development especially in ports along the highways. The use of RO-RO benefited industries and people through faster and cheaper transportation service. The number of vehicles carried by RO-RO in Mindanao has increased annually by 7.2% from 2007 to 2010 largely due to the highly robust operations of the RO-RO system and improved economic situation. The growth has been phenomenal in Southern Mindanao having registered double digit growth rates with a spike of 290.7% in 2009 for an annual average of 108.6% (Table 9-3). It is noteworthy that Mindanao moved far more vehicles than both Luzon and Visayas, even if the latter have far more islands (Figure 9-7) and RO-RO ports (37 against Mindanaos 21). This is likely due to significantly lowered transport costs (by 40% for passengers and 30% for cargo), and travel time reduction by 10 hours from Mindanao to Luzon through the Visayas. These indicate that Mindanao is the primary beneficiary of the RO-RO system, which better connected it with the rest of the Philippines at least cost. having clearly demonstrated its benefits, the RO-RO system must thus figure significantly in the long-term development framework for Mindanao.
all of which are small community airports, are located inland. This configuration implies two things: (a) Mindanao development is largely coastal; and (b) Mindanao airports are exposed to risks posed by oceanographic (sea-level rise) and geologic (tsunamis) phenomena. Due to the absence of Principal airports inland, many passengers need to travel 1-4 hours overland to take regular and cheaper flights. Three Mindanao airports are among the 10 busiest in the Philippines in 2010 in terms of passenger traffic: Davao City (3rd), Cagayan de Oro City (4th) and Zamboanga City (10th) as shown in Table 9-5. Volumes of passenger traffic in these airports have been growing at double-digit levels, with Davao city even doubling its growth rate to 35.4% in 2010, when it moved 2.7 million passengers. In terms of cargo traffic, four Mindanao airports were listed in the top 10: Davao (3rd), Cagayan de Oro City (4th), General Santos (7th) and Zamboanga City (8th). General Santos, which only ranked 14th in passenger traffic, figured prominently in this category, owing to the large (11.8 million kilograms) carriage of fish and fish products. In terms of regional performance on passenger traffic, Mindanao airports registered growth rates higher than the already very high national average of 14.1% in 2009 (Table 9-6). Altogether, Mindanao airports moved 5.1 million passengers in 2009, registering a growth rate of 24.6% from 2008. Region XII grew the fastest at 48.2%. As a result, Region XII also increased its contribution to passenger movements from 10% in 2008 to 12% in 2009. The biggest contributor is Region XI at 39% due to the big volumes of passengers using the Davao City Airport, followed by Region X (24.5%) due to the Cagayan de Oro Airport. Passenger and cargo traffic are expected to further speed up over both the medium and long term. The operation of Laguindingan airport in 2012 will help meet the growing demand for aviation services, particularly in Northern Mindanao. however, at the rate passenger and cargo movements are expected to grow, the expansion, rehabilitation and modernization of Mindanao airports have become imperative. And in order to address the risks posed by natural phenomena and accessibility of principal
airports to people inland, plans and feasibility studies for undertaking these expansions or actually building new airports inland, must already be undertaken.
subscribers in Mindanao had reached about 9.5 million in 2010. Internet use has likewise been growing rapidly especially among the young people of Mindanao. This is despite the low access to computers and Internet by many children, particularly those in less-developed areas. There are at least two programs that address Internet access by students: (a) the Community e-Center (CeC), which was implemented by the Commission on Information and Communication Technology (CICT) in cooperation with LGUs, private sector, schools and other stakeholders; and (b) USAIDs Growth and equity in Mindanao (GeM), which implemented the Computer Literacy and Internet Connection (CLIC) Program. By the first quarter of 2009, there were already 275 CeCs in Mindanao, found mainly in municipalities (Table 9-8). The CLIC program has provided computers and high-speed Internet connections to about 200 schools all over Mindanao. The major constraints to ICT development in Mindanao are Internet broadband connectivity and costs of Internet and software. The sustainability of the above programs has been compromised by these same constraints as some schools have not been able to handle the payments for Internet service and replacement of computers and parts. These constraints, in turn, are due to inadequate infrastructure, which were not put in place since demand levels had not been enough to justify further investments by service providers. Financing has also been a major problem because being an infant industry, ICT service providers still do not have track records that banks normally require. ICT-oriented businesses and services as well as the business process outsourcing industry have become significant players in Mindanao, as discussed in Chapter 7. But for these to prosper at a more rapid rate, the corresponding hard and soft ICT infrastructure need to be provided. Soft infrastructure includes the production of quality IT graduates and practitioners. Some parts of Mindanao are well placed to do that since these have enough schools adjudged by CheD as Centers of excellence in Information Technology education (Table 9-9). however, the greater part has little or no access to quality education since the centers are concentrated in very few areas and mainly in Davao City. In addition, many of those trained by these schools move to other parts of the country or abroad.
Air
Mindanao has 27 airports (Table 9-4) classified according to international (3 existing and 1 under construction), Principal Class 1 (3), Principal Class 2 (9), and Community (11). The Laguindingan International Airport located in Misamis Oriental is expected to be completed in early 2012. Twenty-one airports were recently improved under the Super Regions program of the Arroyo Administration. These included the establishment of Mlang Airport in North Cotabato. Most of these airports are located along or very close to Mindanao coastlines. Only three (Malaybalay, Mlang and Surallah) airports,
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Figure 9-7 Vehicles Carried by RoRo by Share of Major Island Groups (In Thousand)
2007
Northern Mindanao GR (%) Southern Mindanao GR(%) Total Mindanao GR(%)
Source: Philippine Ports Authority
2008
962,657 5.4 16,663 23.8
2009
1,011,678 5.1 65,105 290.7 1,076,783 10
2010
1,070,180 5.8 72,368 11.2 1,142,548 6.1
913,575 13,464
927,039
979,320 5.6
Other constraints identified by ICT practitioners include the outdated and conflicting regulatory framework; limited utilization of ICT for economic and social development due to lack of understanding and appreciation for the complex IT industry and its various sub-sectors; and peace and order problems that drive investors away. One illustration of conflicting policy is Depeds prohibition on collection of contributions by schools, hence the inability of programs such as that of GeM to provide resources for maintenance of computers that the latter provided to schools. The other is the slow response of government to the use of ICT in its operations and in addressing the peace and order problem.
Power generation in Mindanao was steadily increasing at an average annual growth rate of 4.7% from 2002-2009 (Figure 9-8). In 2009, generated power reached 8,235 GWh. In the second quarter of 2010, the average and peaking capabilities of the plants dropped to 771 MW and 860 MW, respectively (Table 9-10), hence brownouts reached 4-6 hours daily. The average generation capability of hydroelectric plants exhibited the biggest drop, mainly due to the adverse impacts of the el Nino phenomenon. The average capability was at its lowest sometime in the height of summer months when it dropped by about 90%. Mindanaos energy sources have become more diversified over the years. In 2002, Mindanao did not have coal and solar power generating capability. In 2005, Cagayan electric Power and Light Company (CePALCO) operated a 1 MW photovoltaic power plant in Cagayan de Oro. Coal power started to be produced in 2006 and since then has become a significant contributor to the grid, accounting for 12.4% of installed capacity in 2009. At the height of the power crisis, coals contribution to the grid became very significant at 27.2% as hydropower plants failed to reach their capacities.
Source: DOTC
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Table 9-4. Categories of Mindanao Airports By Region Airport Name Region IX Zamboanga Peninsula Zamboanga International Airport* Dipolog Airport* Pagadian Airport* Ipil Airport* Liloy Airport* Siocon Airport* Region X Northern Mindanao Lumbia Airport, Cagayan de Oro City* Camiguin Airport* Labo Airport, Ozamis City* Maria Cristina Airport, Iligan City* Malaybalay Airport, Bukidnon Laguindingan International Airport, Misamis Oriental* Region XI Davao Region Francisco Bangoy International Airport, Davao City* Imelda R Marcos Airport, Mati City* Region XII SOCCSKSARGEN Tambler International Airport, General Santos City* Awang Airport, Cotabato City* Allah Valley Airport, Surallah, South Cotabato Mlang Airport, North Cotabato Region XIII Caraga Bancasi Airport, Butuan City* Surigao Airport, Surigao City* Tandag Airport, Surigao del Sur* Siargao Airport, Surigao del Norte* Bislig Airport* ARMM Sanga-Sanga Airport* Jolo Airport* Malabang Airport* Cagayan de Sulu Airport*
Source: Civil Aviation Authority of the Philippines, DOTC *Located along or close to coastlines International: Airports with border facility used for international flights Principal: Airports for scheduled domestic flights using Jet (Class 1) and Prop (Class 2) services Community: Airports used for general aviation aircrafts
Airport Category
Rank
1 2 3 4 5 6 7 8 9 10 14
2009 (000)
24,108 4,395 1,968 1,324 1,111 1,020 832 640 588 583 405
Passenger Traffic
GR (%)
8.3 20.6 16.2 23.3 23.1 21 32.6 59.9 22 24.1 33.7
Rank
1 2 3 6 4 5 7 8 9 10 14
2010 (000)
27,120 5,791 2,664 1,581 1,302 1,224 860 1,006 728 624 478
Cargo Traffic
GR (%)
12.5 31.8 35.4 19.4 17.2 20.0 3.4 57.2 23.8 7.0 18.0
Rank
1 2 3 6 4 5 10 NA 9 8 7
International Principal; Class 2 Principal; Class 2 Community Community Community Principal; Class 1 Principal; Class 2 Principal; Class 2 Community Community International (Under construction) International Community International Principal; Class 1 Community Community Principal; Class 1 Principal; Class 2 Principal; Class 2 Principal; Class 2 Community Principal; Class 2 Principal; Class 2 Community Community
Diversification is a recognized strategic move for various reasons, not the least of which is to cushion the impacts of possible drops in the supply of power sources similar to the hydropower experience during the dry spell. however, diversification must veer more towards increased use of clean, renewable and indigenous sources of power to minimize costs attendant to importation, foreign exchange risks, and environmental impacts. The reverse has been happening in Mindanao as reliance on coal and oil has risen in the recent years. Plans are afoot to establish more of such plants in the near future because indigenous resources are limited and technical feasibility issues have yet to be addressed on the use of renewable power such as biomass, wind and solar. electricity sales have been growing at an average rate of 2.2% annually in the last five years to reach 6.7 MWh in 2009 (Table 9-11). Industry remains as the biggest user accounting for 38.5% of annual average consumption in the period 2005-2009. All users have been steadily increasing their consumption annually recording a composite average growth rate of 3.0% in same period. This indicates some robustness in the economy despite the registered 10% drop in consumption by industry in 2009. Worth noting is system loss, which has been accounting for 13.9% of annual average consumption and rapidly increasing at an average rate of 6.1% annually. In 2009, system loss increased by a whopping 16.6% (Figure 9-9). The caps on system loss are set at a relatively high 9.5% for distribution utilities and 14% for electric cooperatives. Own-use electricity likewise needs close examination since its share in total in 2009 reached 4.4% and has been growing at a rate of 18.3% annually. These are alarming trends considering that power has become an expensive and critical commodity in Mindanao. The costs of losses and own-use are automatically passed on to electricity consumers resulting in also automatically eroding business profitability and increasing burdens to meager household budgets. Meanwhile, these legal provisions further boost systemic inefficiencies and complacency.
Power prices have been rising in Mindanao. The days are gone when Mindanao was known for having the cheapest power at the time when it was able to maximize the use of hydropower. There are many factors causing price increases, each of which is a complex issue in itself, hence would not be easy for consumers to do something about. These include the following: Increasing demand vis--vis compromised supply due to the impacts of climate change and environmental degradation; Low capability to meet demand due to failure to build new capacities; Costly imported fuel, which is made more expensive by exchange rate depreciation, costly transportation, and other related importation costs; Substantial system losses in generation, transmission and distribution, as described above; Provisions of Republic Act 9136 or the electric Power Industry Reform Act of 2001 (ePIRA) that authorizes the National Power Corporation (NPC), Independent Power Producers (IPPs), and electric distribution utilities (DUs), i.e., electric cooperatives, to recover some allowable costs to help them sustain viable operations, through among others, the Generation Rate Adjustment Mechanism (GRAM) and the Incremental Currency exchange Rate Adjustment (ICeRA) mechanism. Ancillary charges and capital expenditures of the National Grid Corporation of the Philippines (NGCP) that are passed on to consumers.
DOe projects that demand would increase by an average of 4.6% annually to reach 2.2 GWh in 2020 and 3.5 GWh in 2030 (Figure 9-10). To meet and sustain this demand, at least 1,000MW new
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Table 9-6. Regional Shares and Growth Rates in Air Passenger Traffic Area
Region IX Region X Region XI Region XII CARAGA Mindanao Philippines
Source: Civil Aviation Authority of the Philippines
Area
GR (%)
22.5 25.7 16.2 48.2 38.5 24.6 14.1 Region IX Region X Region XI Region XII Caraga ARMM Mindanao NCR Philippines
Population
3,230,094 3,952,437 4,156,653 3,829,081 2,293,480 4,120,795 21,582,540 11,553,427 88,542,991
Lines Installed
43,327 151,295 272,498 79,014 127,272 33,344 706,750 3,411,533 7,168,261
Teledensity Installed
1.34 3.83 6.56 2.06 5.55 0.81 3.27 29.53 8.10
Subscribed
32,445 61,846 104,836 37,926 34,315 8,108 279,476 2,097,361 3,940,082
Subscribed
1.0 1.6 2.5 1.0 1.5 0.2 1.29 18.2 4.45
2008 (000)
638 984 1,693 407 332 4,056 36,163
Share(%)
15.7 24.3 41.7 10.0 8.2 11.2 -
2009(000)
781 1,236 1,968 604 460 5,052 41,258
Share(%)
15.5 24.5 39.0 12.0 9.1 12.2 -
capacities must be installed in the next 10 years and still another 1,500MW from 2021-2030. So far, only two plants having a combined capacity of 58 MW have been committed to meet the 800MW capacity that must be installed in the next four years to avert a crisis. A couple of small solar projects are currently being planned. Installation of new capacities on a progressive basis is imperative. Unfortunately, investments are discouraged primarily by the lack of peace and order and power pricing situation in Mindanao. The pricing issue involves the heavy subsidy for NPC to avert political repercussions of big increases in electricity rates if NPCs true costs were to be passed on to consumers. With the ePIRA, other costs are being passed on to consumers thus making it more difficult for government to pass on the mounted costs of NPC. To address inefficiencies, encourage competition, attract investors and give consumers the right to choose the power they would consume, ePIRA provides for the establishment of the Mindanao Wholesale electricity Spot Market (WeSM) by 2014 and strengthen rural cooperatives. Despite higher electricity prices compared to those Mindanao had traditionally been used to, they remain too low to attract new investments. A comparison by NGCP shows that in April 2009 the prices of electricity were P6.59 per KWh in Davao Light; P7.23/KWh in VeCO in Visayas; and P9.32/kwh in Manila electric Co. At these rates, investors shy away from Mindanao and get attracted more to Luzon since it offers better profitability and has better peace and order situation. A related issue is the privatization of Agus and Pulangui power plants by 2011 as prescribed in ePIRA. Accordingly, no investors have shown serious interest in these plants to date, likely for reasons cited, including the environmental conditions that lower the capability of these plants to produce power. There has been a strong lobby especially from Mindanao business, to defer the sale of the plants due to fear of sudden increase in rates and creation of private sector monopoly in power generation. The six plants of Agus must be sold as one since they are more economical to operate in tandem. Their combined capacity of 727 MW represents almost 40% of total installed capacity, thus
whoever buys it could control and heavily influence Mindanaos power generation and pricing. Solar power is expected by many to significantly and immediately help address Mindanaos power problem. Compared to fossil fuel base plants, which need three years to set up, a solar power plant can be made operational in six months. however, the government, through the National Renewable energy Board (NReB), is limiting solar power capacity to 100 MW nationwide in the next three years because its higher cost is expected to substantially increase power prices. NReB is looking at a P17.95 per kwh feed-in-tariff for solar energy, which is far higher than mini-hydros P6.15 per kwh, and wind powers P10.37 per kwh. Meanwhile, there are 44 applications to set up solar power plants with combined capacity of 420 MW nationwide (with some to be located in Davao, Zamboanga, Misamis and Cagayan de Oro). As such, there is a clamor to increase the capacity limit beyond 100 MW to 230 MW, and to review the proposed feed-in-tariff for solar energy.
By 2020, everybody should already have access to clean water. By 2030, there should no more be dependence on Level 1 water system and current Level 2 systems should already be upgraded to Level 3.
Irrigation
The Mindanao 2000 target for irrigation was 69% of irrigable lands by 2002. Fourteen years later (as of December 2009), available irrigation systems only covered 357,435 hectares or 37% of the 959,020 hectares of irrigable lands. This indicates slippages or inability to cope with growing demand for irrigation. The slow provision of irrigation facilities has been attributed to a number of reasons that include: (a) lack of funds vis--vis the huge capital requirements of irrigation development; (b) failure of the National Irrigation Administration (NIA) to fully build capacities and turn over to LGUs the preparation of technical documents (e.g. detailed engineering and program works) for irrigation projects; (c) decreasing quality and quantity of water supply for irrigation due to watershed degradation; and (d) inability of farmers to comply with a new water tax to recover costs of operation and management of irrigation systems and rehabilitation of watersheds. From 2006-2010, NIA focused on the restoration, repair and rehabilitation of existing irrigation systems. With an allocation of Php3.21 billion, NIA targeted to restore 49,389 hectares and rehabilitate 28,987 hectares. however, it was only able to restore 37,105 hectares or 25% short of its target. Current irrigation systems are infrastructure intensive, hence requires substantial financing. They mostly use surface water that is transported over long distances, thus lose much of it along the way. During dry spells, irrigation is the first to be by-passed in water distribution. Meanwhile, farmers in lands irrigated by government are unable to pay for construction and maintenance so the facilities eventually become unusable.
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Province
1 0 1 0 0 1 3
City
14 17 11 9 10 4 65
Municipality
27 46 38 57 23 16 207
No.
1 2 3 4 5 6 7 8 9 10
Source: CHED
Center of Excellence
Ateneo de Zamboanga Ateneo de Davao Capitol University Dipolog Medical Center College Foundation MSU-Iligan Institute of Technology Notre Dame of Marbel University St. Vincents College University of the Immaculate Conception University of Mindanao University of the Philippines (Mindanao)
Location
Zamboanga City Davao City Cagayan de Oro City Dipolog City Iligan City Koronadal City Dipolog City Davao City Davao City Davao City
A quarter of these heIs are public, mostly State Universities and their satellite campuses. Some of these have research units or laboratories albeit generally lacking in financial resources, equipment and technical people to run genuine scientific and technological research works. Their research agenda have thus been limited to what they can handle, and oftentimes not directed towards industries where these can be most useful. The heIs are also hampered by bureaucratic rules and regulations that minimize their responsiveness. All these inhibit them from maximizing partnerships with the private sector, which could have extremely helped them address the same constraints. Private heIs dominate in Mindanao at 75% of the total. Many of these also have R&D units but the thrusts of their research agenda are largely influenced by their own academic needs, again for economic reasons. Partnerships with government agencies and R&D institutes and private business have been limited. In addition to the heIs, some Mindanao NGOs (e.g., Alternative Forum for Research in Mindanao) undertake research work but generally focused on the social sciences. NGOs usually operate with external funding, whose support specific topics of interest; hence their areas of work tend to be limited. R&D institutes and laboratories have attempted to coordinate and share their research agenda and outputs. Often through the leadership of DOST, they have organized themselves into associations or networks such as the Sothern Mindanao Consortium of Analytical Laboratories, Mindanao Studies Consortium, Philippine Association of Institutions of Research, Research Association of Colleges and Universities, and many more. however, these networks are unable to operate effectively due to the usual financial constraints of both the networks and their members, and absence of a legal personality and unclear governance structure that also hinder their ability to raise and effectively utilize external assistance.
LGU Income
The LGC granted the LGUs fiscal autonomy. It empowered the LGUs to generate own resources and provided them wide latitude to utilize their funds. LGUs have the capacity to generate income from (a) tax and non-tax revenues, (b) share from national government in the forms of IRA and share in the proceeds of use of national wealth in the LGU areas, (c) extraordinary receipts mainly in the form of official development assistance (ODA), (d) loans, and (e) inter-local transfers. On top of these, LGUs also benefit from the Priority Development Assistance Fund (PDAF) that their Congress representatives spend through them or local offices of NGAs; Depeds School Building Program; the Calamity Fund, and other special purpose funds. LGUs have been highly dependent on national government, which is the source of at least 80% of their incomes. The major component of their income has remained to be the Share from National Government, of which the IRA accounts for 99% (Table 9-13). As such, the IRA continues to be the one main source of income especially for provinces and municipalities (barangays are 100% IRA dependent). This dependence compromises their advocacy to exercise self-determination, especially over their budgets and expenditures. The cities have attained some level of fiscal autonomy having reduced their dependence on national government to about
natural resources improve their profitability and expand their operations. These have been providing important laboratory services, needed scholarship programs, S&T information; and undertaking programs that promote S&T appreciation and culture such as the Mindanao Invention Contest and expo and Youth excellence in Science award. Priorities for research and technology transfer of Mindanao DOST offices highly consider the contexts of their respective areas and generally support the industries and activities therein. examples of these are furniture making and food processing, industries that rely heavily on Mindanaos agriculture and natural resources. Food processing has dominated the technology transfer and assistance programs since this caters more to SMes. The technologies are simpler and cheaper such as those for the processing of root crops, meat, fruits and fish. Many SMes have prospered due to these assistance of DOST. The transfer or assistance for more advanced technologies required by non-food manufacturing such as those for metal fabrication and chemical-based product manufacturing are notably limited. Basic research seems virtually absent.
As of September 2008, the Commission on higher education (CheD) indicates that there were 433 higher education Institutions (heI) in Mindanao (Table 9-12). This number accounts for 21% of all heIs in the country. Of these, not one was declared as Center of Academic excellence in the period 20072010. however, 10 are considered Centers of Development in Information Technology education by CheD for the same period as already discussed earlier (Table 9-9). For economic reasons, many heIs have shifted to or have been specializing on courses that would cater to the needs of other countries (e.g., nurses and seamen) rather than Mindanao and the Philippines. Those that respond to Mindanao needs have focused on social and political sciences that are seen to clarify and address the complex social and political issues in Mindanao. The above indicates that Mindanao has been producing good quality graduates and has a huge potential to produce scientists and technology experts who will be useful not just for its ICT industry but also for its over-all social and economic development. Unfortunately, these centers are concentrated in key cities and the heIs have not been very responsive to needs of Mindanao due to a host of issues as discussed below.
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Table 9-11. Sales and Consumption of electricity in Mindanao 2010 (As of April) Average Capability (MW) Share to Total (%)
2009 Installed Capacity (MW) Dependable Capacity (MW) Gross Power Generation (GWH) Share to Installed Capacity (%)
Sector
Residential Commercial Industrial Others Total Sales Own-Use System Loss
69 17 0 14 0 100
95 373 210 93
771
100
Total Consumption
Source: Department of Energy
67.5% of their incomes. however, due to the increasing number of cities that share in the revenues nationwide, the allocations have been declining. Cities have so far offset this reduction and, on average, made themselves 27.3% self-sufficient through increased collection of fees and taxes. Mindanao provinces and municipalities usually have lower tax bases compared to cities due to fewer economic activities. however, their low tax revenues also indicate that they have not maximized the collection of taxes due them. On the other hand, the cities are able to reduce dependence on IRA mainly through tax collections. extraordinary receipts and aids have not been significant but on aggregate basis, data show that Mindanao has been getting a fair share at 33.7% of total aids going to all LGUs (excluding barangays) nationwide. Details of this will be presented in the discussion on ODA below. Cities have borrowed or availed of external financing more than provinces and municipalities. Their total borrowing has been significant when compared to all (except barangays) LGU borrowings nationwide. Borrowing from banks or the public (e.g. thru Municipal bonds flotation) has not been resorted to by provincial and municipal LGUs due to a number of reasons that include the lack of information or knowledge on external borrowing, low capability to contract loans and perfect the transactions, and limited income to amortize the loan. Long-term loans are also discouraged by the fact that the local executives only serve for three years.
NeDA estimates57 show that the share of ODA going to Mindanao was 8 %58 in 2007 while the average share was 7.7% from 20042007. It further estimated that the share of Mindanao in the Medium-Term Public Investment Program, 2006-2010 amounted to 139.8 billion pesos spread over six years was 8%. This amount excludes national projects. Regions X (Northern Mindanao) and XI (Davao) got the bulk of ODA in 2001 at 22% and in 2002 at 24 percent . The ODA distribution pattern described above has generally remained the same. In 2009, Mindanao-specific projects contributed 6.1% to total ODA proceeds (Figure 9-11). It is expected that when grant projects and nationwide and multiregional loans are considered, Mindanao share would be equal to or a bit more than 8%, the average share registered in 2007. Luzon, particularly the NCR and Region III, got the lions share of ODA loans at 39.3%, indicating that the cost of loan projects that went to Luzon were more than six times those that went to Mindanao. More than half of ODA loans specific to Mindanao were implemented island-wide in 2009. For region-specific projects, Region X got the biggest share of ODA at 19.8% (Table 9-15). ARMM and Region XII also received significant amounts of regionbased ODA. There were no projects funded in 2009 in Regions IX and XIII but these regions were included in Mindanao-wide and nation-wide projects. ODA availment and utilization by LGUs face a number of issues. As in many cases, lack of capability in various aspects of project development and implementation tops it all. For ODA availment, commonplace are: (a) weakness in planning and identification of programs and projects, (b) weakness in project proposal development, and (c) inability to put up required counterpart
funds. For implementation, issues are usually project-specific but the most common are lack of capabilities to address implementation bottlenecks and delays, cost over-runs, rightof-way problems and coordination problems. All these may be summed up to low absorptive capacity, which has been the reason cited for the lower than desired ODA level for Mindanao.
NGA Budgets
In addition to all the sources of income cited above, additional funds are allocated to or through various LGUs in the form of programs and local projects of national government agencies (NGAs). In general, the use of these funds are determined at the Department level; and disbursed and used by the regional and local NGA offices, sometimes in coordination and cooperation with LGUs. For 2010, a total of P73.6 billion was allocated for the various regional offices of the NGAs, Commissions (e.g., Commission on elections) and State Universities in Mindanao (Table 9-16). While this is a substantial outlay, even more than the incomes of LGUS, a big chunk of the money was earmarked for salaries and operations59 of the regional offices and State Universities. Only a small fraction of this could be directly spent on development projects. Nonetheless, the regional offices are there to provide services and pursue department programs and initiatives that benefit the regions. The special purposes funds (SPF) reflected in Table 9-16 only cover three components: (a) the allocations for the LGUs, which are actually composed of the IRA and other tax revenues due the LGUs; (b) the PDAF, and (3) the allocations from the Agriculture and Fisheries Modernization Program (AFMP). Together, these three funds allocated a total of P 72.9 billion for use in 2009. In 2010, the AFMP budget was subsumed in DAs budget but still the total SPF allocation increased to P74.5 billion.
55 A common view that came out during consultations 56 The actual amount of ODA going to Mindanao or any specific area at any one time is hard to determine given available data. The bulk of ODA projects cover the whole country or a number of regions but the allocation for each region or area is not readily quantified. Furthermore, most projects are for multi-year implementation and the budget or expenses for one year are not immediately available. The projects and amounts cited herein, therefore, may not be solely for 2009.
57 Paper presented by RD Lourdes Lim of NRO XI in the Mindanao Working Group Conference in November, 2009 in Davao City. 58 An Assessment of the ODA Policy in the Philippines (2003). Garcia, Leonora and Lumilan, Eden Grace. Official Development Assistance, Quezon City 59 There are other special purpose funds like Calamity Fund, Agrarian Reform Fund and E-government Fund but these were not included since these are not automatically distributed to all the regions and the availment of some is conditional.
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The PDAF is a fixed amount provided to Congressional representatives for use in the development of their respective districts. Its utilization is coursed through the Departments that are responsible for the types of projects it earmarked for, e.g. DPWh for infrastructure development. Mindanao has been getting P1.1 billion each year from PDAF. Assuming all are spent for and within Mindanao, PDAF is a clear addition to the monies flowing into Mindanao for its development. The allocations of both the departments and the SPF to Mindanao have been steadily and rapidly increasing at an average of 11.3%, much faster than Luzons 8.8%. In 2010, the total allocation for Mindanao came up to P148.1 billion. Mindanawons have been complaining about the much lower budget Mindanao has been getting from national government compared to its contribution to GDP and allocations for Luzon. Indeed, Figure 9-12, which plots the budget distribution in 2010, bears this out. Mindanaos share was 17%, a level that has remained practically the same for some time now. In contrast, Luzons share accounts for a third of the total budget for all the areas. The nationwide share is also substantial at 25% because it accounts for the budgets of the central offices of national agencies. To put this issue in proper perspective, it must be noted that Luzon accounts for the budgets of eight regions (compared to 6 of Mindanao), and takes care of a wider geographical area and bigger population. Meanwhile, Visayas gets the lowest budget but it also has the smallest area and population. It would thus seem that the better basis for comparison is per capita budget distribution as shown in Figure 9-13. When population was considered, the gaps in budget shares drastically narrowed, even placing Mindanao at an advantage as it only covers six regions. The above discussions on the income and other funds sources of LGUs illustrate that LGUs have substantial resources to manage and spend for the development of their jurisdictions and, should
there be shortfalls, they also have a wide scope for increasing incomes and mobilizing external resources. It is also not quite true that Mindanao is at a disadvantage in funds and ODA allocations. The pertinent question appears to be whether LGUs are able to manage their resources well so that they may absorb more funds for the upliftment of their constituents welfare.
period. Region XI had the lowest surplus in view of the big deficit of P183.9 million incurred by Davao City in 2007. Only 3% of all cities registered deficits in 2007 and 2008. There certainly are many reasons for the income and expenditure patterns of LGUs as described above, some may be justifiable but others may actually point to weak financial management capabilities that need to be addressed by this plan. The incomeexpenditure patterns indicate that most LGUs (a) have much elbow room to mobilize resources, (b) can accomplish much more from available resources, and (c) must improve systems and processes to speed up funds utilization especially for development projects. The last point actually applies to national government as well since a major reason for the surpluses is the systemic delays in budget releases from the national government.
OFWs in Mindanao originated from Region XII. The shares of Regions IX, X and XI in the deployment were even at 18%. Bangko Sentral ng Pilipinas records show that total remittances reached about PhP 826 billion in 2009. Of this, about PhP130 billion were contributed by Mindanao, which, on average, contributes 16% to total remittances. OFW remittances come in two forms (cash and kind) and delivered through various modes such as banks, couriers, mails, family and friends. Statistics are generally able to capture only cash remittances that go through the financial system, hence actual levels are expected to be significantly higher than those being shown in Figure 9-16. Furthermore, the destinations of remittances as identified by the financial system do not reflect the true picture since funds freely move. Tapping these substantial amounts for long-term and productive use would be a great help to Mindanawons.
OFW Remittances
Apart from government and business, there are other funds that may be tapped for investments in peace and development in Mindanao. One of these is the remittance of overseas Filipino workers (OFW), a good part of which is seeking places for productive investments, and probably an equal part of it are not spent wisely. In 2008, there were 328,328 OFWs from Mindanao deployed overseas. Deployment was steadily growing from 2003 and peaked in 2008. A drop in deployment of 4.5% to 300,184 was experienced in 2009 (Figure 9-14). Mindanao accounted for 15.7% of total OFW deployed by the country during the year (Figure 9-15). A fourth of total deployed
Where We Want to Go
Vision
By 2030, Mindanawons can appreciate that: Infrastructure, knowledge and financing support systems are well in place, effectively propelling a wide array of development initiatives in Mindanao towards successful outcomes beneficial to all Mindanawons.
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Goals/Objectives:
1. Reliable, efficient and climate-resilient infrastructure featuring: An integrated inter-modal transport and logistics network, with high-standard highways and strategically-located, climate-resilient ports, airports and land transport stations that allow faster movement of people, goods and services; reduce logistics costs; promote productivity and competitiveness; and seamlessly connect Mindanao with the rest of the country and the world; A dependable power system that optimizes the use of renewable energy, minimizes adverse impacts on environment and ecosystems, and ensures reliable transmission and efficient distribution of affordable electric power up to the most remote barangays; Widely accessible water supply systems with the capacity to provide water for drinking and hygiene, complemented by environment-friendly sewerage and sanitation systems that protect public health and promote well-being; State-of-the-art ICT infrastructure that provides reliable, affordable and high speed connectivity; links peoples and systems; allows efficient exchange of information and knowledge; and ensures universal access, ; all for purposes of promoting economic growth, strengthening institutions and governance, and empowering common people and communities; and Ample and reliable support infrastructure for education, health, agriculture, tourism and disaster risk management. A responsive knowledge support system from a strong and well-equipped Mindanao S&T community that (a) undertakes active and relevant R&D generating new knowledge to address the regions peculiar challenges and requirements through innovative and adaptive technologies; and (b) features an active network of centers of excellence from which continuously emerge highly-acclaimed scientists and technologists. Ample financial resources that effectively tap a variety of local and external fund sources, and assert Mindanaos self-reliance both in the sourcing of funds and in the development activities that they support. The financial environment will be marked by: A policy environment conducive to private investments and partnerships with national and local governments; LGUs capable of mobilizing and properly managing financial resources for their development needs; and Mindanawons taking charge of their own destiny by investing in infrastructure development and productive economic activities within Mindanao.
Targets
Benchmarked on 2010 levels, the following targets for the various enabling components will be pursued: By 2016, All national roads are paved and in good condition; 80% of barangay roads are paved Construction of Mindanaos first railway system is underway 100% increase in Ro-Ro passenger traffic; 50% increase in vehicles carried by Ro-Ro 80% increase in foreign ship calls 100% increase in air passenger traffic with Region X increasing its share to 30% All high schools have computer laboratories and access to Internet All provincial, city and municipal LGUs have reliable Internet access and computerized financial operations 13% increase in installed power generating capacity; about half of which is accounted for by renewable energy 70% of irrigable lands have irrigation facilities 95% of households have access to safe water 20% drop in IRA dependence on average; 100% increase in share of income of LGUs from local sources on average
long-term Mindanao-wide infrastructure development plan must be formulated simultaneously and interactively with Mindanaowide infrastructure sub-sector plans. These plans must possess, among other things, the following attributes: Takes guidance from this long-term framework plan (Mindanao 2020) and a Comprehensive Mindanao Land Use Plan as prescribed in Chapter 8; Accounts closely for Mindanaos natural, spatial, cultural and geographical conditions apart from the usual social and economic situations; Considers long-term (20-30 years) future requirements based on, among other things, (a) population growth and mobility, (b) economic growth, (c) global/ regional trends (e.g., population aging, declining natural resources especially fossil fuel) and (d) natural phenomena (e.g. sea level rise, seismicity); apart from the usual historical trends and current situation; Identifies clear sources of technical and financial resources, and strategies for mobilization and implementation; Mobilizes wide support from a participatory formulation process; and Provides for good communication and feedback mechanisms.
2.
3.
By 2020, Multi-modal network of transportation and logistics highway in place in key centers All barangay roads are paved Mindanao has its first railway system Further 70% increase in passengers and cargos carried by Ro-Ro 90% of irrigable lands have irrigation facilities All public elementary schools in cities and provincial centers have internet access and at least five computers for use by students All LGUs have computerized systems and dedicated computer centers for use by farmers, fisherfolks and SMes in their operations and marketing 20% increase in installed power generating capacity; about half of which is accounted for by renewable energy All households have access to safe water Further 10% drop in IRA dependence (average of all LGUs); another 50% increase in share of income of LGUs from local sources (average of all LGUs)
4.
2.
These strategies are further elaborated below. Formulate a Mindanao-wide long-term infrastructure development plan and infrastructure sub-sector development plans Plan Mindanaos infrastructure development as a total system for maximum efficiency and widest benefit. Mindanao infrastructure development has largely been guided by regional plans formulated by the Regional Development Councils and sub-sectoral plans (e.g., energy and transportation) formulated and implemented by NGAs; and influenced by political and administrative subdivisions. however, Mindanao consists of a large contiguous area and several large and small islands that must be viewed in totality to fully consider complementarities and inter-linkages. This means taking stock of what infrastructures are in place, what else are needed, and how these may be undertaken in a coordinated and integrated fashion. For this, a
3.
Plan infrastructure on the basis not only of the usual socioeconomic and financial background information, but also on relevant scientific knowledge as well. In this era of globalization and climate change phenomena, the importance of reliable data and scientific studies cannot be overemphasized. The country is located in the Pacific Ring of Fire, making it prone to earth movements and accompanying phenomena such as tsunamis. As an archipelago, it has thousands of islands hence is highly vulnerable to climatological and geological occurrences such as sea level rise, and subsidence. For the same reasons, it has numerous geological formations such as mountains, valleys/ canyons, caves and sinkholes, and very high biological diversity that need to be protected and managed. Mindanao possesses all these features, which means that for efficiency and sustainability, infrastructure planning and development must be informed by more than the usual socio-economic and financial studies. Scientific studies (e.g., seismic, geological, atmospheric and geomorphological studies) also need to be undertaken and upto-date modeling techniques need to be applied in infrastructure planning. The hazard and risks maps produced by the DeNR through NAMRIA must also find application in planning for infrastructure development and population settlements. Make infrastructure responsive to specific contexts and requirements. economic, social, cultural and political contexts vary widely across various parts of Mindanao. Yet, many erroneously approach Mindanao as if it is a homogenous entity, and thereby apply plans and programs based on template solutions that could prove inappropriate, inapplicable or even undesirable in specific local conditions.60 It is thus imperative that accurate and timely local data and statistics be available to better guide planners and program/project designers.
By 2030, A multi-modal integrated transportation and logistics superhighway is in place All types of transactions needed by the public with LGUs can be done online All schools have Internet access and computer laboratories Mindanao farms are fully irrigated and irrigation systems are regularly maintained On average, LGUs are 30% IRA dependent and able to undertake more ambitious projects using self-generated funds
60 See Box 7-2, Appropriate Solutions Need Not Be Costly in Chapter 7, for example.
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Table 9-13. Mindanao Government Income Structure By Administrative Subdivision, 2009 % Share
2.9 4.0 4.4 3.8 3.1 2.8 21.0 18.1 60.9
Public
12 18 16 10 16 14 86 135 316
Private
48 65 75 68 48 43 347 238 938
Total
60 83 91 78 64 57 433 373 1254
Income Source
Share to Total (%) 10.3 3.5 6.8 84.7 83.8 0.9 3.2 1.9 0
Mindanao Municipalities (PMillion) 2,421 1,111 1,310 21,165 20,948 217 259 346 15 24,204
Share to Total (%) 10 4.6 5.4 87.4 86.5 0.9 1.1 1.4 0.1
Mindanao Cities (PMillion) 5,347 3,643 1,703 13,320 13,202 118 42 823 23 19,555
Share to Total (%) 27.3 18.6 8.7 68.1 67.5 0.6 0.2 4.2 0.1
Total 9,555 5,362 4,194 49,231 48,741 490 850 1,500 41 61,177
Share to Natl (%) 10.7 8.5 15.7 28 27.9 10.4 33.7 28.9 3.2 22.2
Promote self-reliance, cooperation and sustainability in infrastructure provision Enable, equip and empower LGUs to assume more prominent roles in infrastructure development through entrepreneurial governance, partnerships with the private sector, and by forging alliances. This is in line with the strategies for strengthening LGUs discussed in Chapter 8, thereby making them the basic exemplars of self-reliance and self-determination in Mindanao. Foster an investment-friendly policy and institutional environment, particularly for private sector investments in infrastructure via PPPs. In line with the strategies in Chapter 7 to promote domestic and foreign direct private investments through policy reforms, key initiatives in the context of attracting infrastructure investments would include (1) continuous improvements in PPP schemes including optimizing distribution of risks; (2) rationalizing and streamlining bureaucratic approval requirements and procedures; and (3) establishing an investment guarantee fund particularly for critical areas with peace and order problems. Encourage inter-LGU collaboration in the provision of local infrastructure. The benefits from having LGUs pool resources together and undertake infrastructure development collaboratively has already been demonstrated in actual experience (see Box 8-2 in Chapter 8). Make social preparation and stakeholder participation integral parts of standard operating procedures for developing infrastructure facilities, in order to forge wide ownership and support by the public. On the part of the using public such ownership is likely to encourage more prudent and judicious use, assistance in care and maintenance, and participation in monitoring and reporting need for remedial measures when called for.
17,417
Establish an effective M&E system for infrastructure Institutionalize an M&E system featuring active stakeholder participation. Two key issues in infrastructure development in Mindanao are undue political influence on program and project identification, and weak M&e systems. The two are actually related. Politically influenced programs and projects need not be inherently undesirable, if the result is meeting the needs of the majority of the citizens, rather than narrow and self-serving interests of politicians or minority but powerful vested interests. The latter situation is best avoided by having meaningful and representative citizen participation in the infrastructure planning cycle, spanning planning/programming all the way to M&e, which in turn informs subsequent infrastructure plans and programs. In particular, LGUs must encourage citizens and the media to take active roles in the regular monitoring of both positive and negative practices and outcomes associated with infrastructure projects. Such system can check graft and corrupt practices and ensure that infrastructures are developed according to actual need, design and specifications. Implement a system of rewards and sanctions for good performance and under- or non-performance respectively. This will further enhance the potency of the M&e system toward encouraging positive performance and outcomes from infrastructure projects. Promote transparency through an effective information and communication system Keep the public informed and seek their feedback on infrastructure initiatives. Transparency through participatory processes as earlier described, and proactive dissemination of timely and accurate information about policies, programs and
Source: Bureau of Local Government Finance
projects must mark infrastructure development in Mindanao. Consultations must be routinely undertaken throughout the project development and implementation processes, i.e., from planning to completion and use, to ensure responsiveness of and maximum benefits from infrastructure facilities. Below are further strategies that are specific to particular infrastructure sub-sectors:
closest to economic centers, through encouragement of investments and issuance of a legal basis that provides direction and incentives. Provide complementary infrastructure support especially river quays and seaports that possess the features earlier described, and connect these to the logistics network (e.g., stations, roads, airports) and value chains. Improve safety and sea-worthiness of water vessels, and security in water transportation routes by, among others, replacing aging vessels and improving navigation systems. Promote the establishment of shipping as well as boat and shipbuilding and repair industries, both for local transport needs and for the export market (see Chapter 7). In the medium-term, Mindanao can create a niche in the industry (e.g., supply of shipbuilding parts and materials) to strengthen its influence in policy-making for these industries.
Reform policies and regulations that have rendered the transport and logistics system inefficient and costly, along with industries linked to them. examples are the cabotage law and high import tariffs on steel products. Creative incentives and improved systems and procedures must also be put in place. Integrate land, air and water transport systems into a coherent and interactive array of interdependent networks. Creating such an inter-modal transportation and logistics superhighway will increase travel efficiency and reduce costs. enhancing safety and minimizing negative environmental impacts must be priority concerns in the establishment of such logistics system.
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Coverage Area Region X Region XI Region XII ARMM Mindanao-Wide Mindanao Total
Source: 2009 Portfolio Review of NEDA
Number
2 4 8 2 1 9 1 3 3 1 1 1 1 1 1 2 6 20 28 95 11 106
Amount
(US$ M)
% Share to Total
0.38 2.76 11.94 0.27 0.97 14.06 0.26 0.78 1.27 0.68 0.59 0.75 0.96 0.26 0.49 0.63 2.51 9.11 31.36 80.03 19.97 100.00
36.6 266.2 1,150.5 26.3 93.0 1,355.1 25.0 75.2 122.2 65.5 56.8 72.2 92.2 25.0 47.2 60.5 241.8 878.4 3,022.6 7,712.2 1,925.0 9,637.2
and deregulated environment, (b) put the private sector at the forefront, and (c) give priority to the development of a scientific and knowledge-based culture, especially among the young people and the production sector. Develop a coherent information infrastructure program based on the above ICT plan, incorporating a clear physical investment program to support high speed connectivity and increase demand in order to lower costs to the public. Whenever and wherever warranted, government must undertake missionary investments to boost investor confidence and connect far-flung areas. Establish a Mindanao information governance structure that involves the LGUs, business and other non-government sector, academe, students and parents, as the local counterpart of an activated and strengthened Information Technology and e-Commerce Council at the national level. The structure must be island-wide rather than regional in orientation inasmuch as ICT defies boundaries. Among its major functions should be the management of risks such as the negative image of Mindanao, terrorist activities, disasters and impacts of climate change. Update and remove inconsistencies in the national policy and regulatory framework and complement this with a local (Mindanao) framework. The Mindanao framework could include an investment and incentives program that supplements that of the national program. Foster centers of excellence in IT education by supporting key academic institutions in strategic areas in Mindanao toward achieving such status, while ensuring that existing centers of excellence maintain their status. This is critical to sustaining the supply of quality human resources to meet the growing needs of the ICT industry. Ensure wide access by small producers to ICT tools and the Internet. Access to information and knowledge empowers small producers, as it helps them overcome limitations associated with their size disadvantage vis--vis large firms or farms. This would entail establishment of self-sustaining programs that would build capacities and equip SMes and small farmers on the use and applications of ICT in their respective enterprises. Provision of Internet access points in every barangay should also
Prioritize the upgrading, expansion or modernization of existing airports, particularly the community airports located inland, and pursue construction of a state-of-the-art airport in the Mindanao heartland out of one of such existing inland airports. These strategies aim to catalyze development in less progressive areas, reduce time and cost of accessing airports and air travel, and ensure availability of suitable alternate airports should natural or environmental disasters affect airports near or along the coasts. Strengthen implementation of policies on user payments for infrastructure facilities to address inefficiencies in resource mobilization and utilization: Allocate Mindanao collections from motor vehicle user charges to use within Mindanao, and ensure utilization of these proceeds as mandated by law, i.e., for road maintenance and drainage improvement, road safety devices, and air pollution control; establish a corruption-proof system for enforcing load limits on trucks and other heavy motor vehicles; encourage private investments through imposition of reasonable user charges (e.g., toll fees) as warranted; and Regularly and routinely report on the amounts and utilization of all user fee collections to the paying public.
Upgrade main arterial roads into world-class all-weather highways, and build new ones where necessary (e.g., those that would link Mindanaos east and west sides). Address the following key considerations in designing and building or improving transportation infrastructure: Respect, prioritize and consider the natural and cultural integrity of environmentally and culturally critical areas. Protect biodiversity from loss of habitat and influx of people, and consider geological and geomorphological conditions of the project areas and those surrounding them. Accord due importance to pedestrians in building roads in populated areas by providing ample sidewalk space and safety and directional signs; Provide dedicated lanes for motorbikes and bicycles especially in urban areas to promote energy conservation and minimize accidents; Protect infrastructure from natural disasters (e.g., tsunami) or climate change impacts through location on higher
grounds or away from shorelines and fault lines. Build viaducts and tunnels for better vertical and horizontal alignments and only if extremely necessary, comparatively cost-efficient and environmentally sound.
Promote alliances among LGUs and partnerships among government and community in the construction of municipal and barangay roads. An enabling legal environment and a system of incentives to encourage such alliances and partnerships would need to be provided through a combination of legislation and executive actions (see above and relevant discussion in Chapter 8). Prepare a long-term plan for a railway system that is closely coordinated with the other infrastructure plans mentioned above, to complement the proposed inter-modal transportation and logistics superhighway. The railway plan must create a policy and operational environment that would be conducive for private sector investments in railways and other components of the logistics highway. Conduct of feasibility studies on railway systems identified in the plan must be undertaken.
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Figure 9-13 Per Capita Budget Distribution by Area 2010, Population in 2007
Table 9-16. Regional Allocation of the expenditure Program, 2008-2010 (In Billion Pesos)
Area
Mindanao Visayas Luzon Nationwide
Figures are computned from Table 16 Source: NSO
Total
2009 149.8 113.3 385.9 174.4 823.3 2010 148.1 116.1 391.5 179.2 835.0
AGR
2008-2010 11.3 11.4 8.8 25.5 12.6
Total
be a goal, which could be pursued as a partnership among local governments, civil society organizations and private business.
Further diversify the energy mix by expanding the share of renewable and indigenous power. Develop needed infrastructures that facilitate and lower costs of movement, processing and utilization of renewable energy materials to attract investments in renewable energy generation. Where sustainable, invest in missionary renewable energy projects and seriously study other cost-effective options, including possible establishment of a nuclear power plant in Mindanao if found warranted and widely supported. Prioritize the building of small hydroelectric plants over large ones in order to maximize the use of hydropower without adversely compromising environmental integrity. Meanwhile, speed up the improvement of environmental conditions of hydropower energy sources through the following: Promote and enhance community-based forest management and payments for forest and river services to prevent erosion and sustain ground water supply for hydropower generation; Promote and strengthen community stewardship via incentive mechanisms and capacitation of upland communities to maintain and sustain the watersheds; Adopt a policy and formula for charging water user fees for hydropower generation and equitably utilize and share the benefits with upland communities; Rehabilitate silted river systems feeding power plants such as Pulangi IV; and Resolve conflicts affecting power projects.
Source: Bureau of Local Government Finance, DOF Notes: To minimize distortions, (a) oversight bodies such as Congress and Office of the President were excluded from Departments but State Universities and Commissions with regional offices were included; and (b) only special purpose funds that were directly allocated to the regions were included in the computations.
Table 9-17. Income and expenditure Pattern of Mindanao Regions (Average for 2006-2008) Region Income expenditures Surplus/Deficit % of Income Income expenditures Surplus/Deficit % of Income Income expenditures Surplus/Deficit % of Income IX 2198 1983 215 9.8 3037 2711 326 10.7 2787 1647 1140 40.9 X 2838 2726 112 3.9 3926 3595 331 8.4 4999 4081 917 18.3 XI XII XIII 2373 2068 305 12.9 3308 2885 423 12.8 1823 1616 207 11.4 ARMM 2561 2432 130 5.1 4284 4142 142 3.3 711 697 14 2.0
Deliberately address losses in power generation, transmission and distribution systems with clear targets for reduction through time. This would include establishing a mechanism for imposition of penalties for excessive system loss, and reforming the Universal Charge formula, with end in view of excluding costs of inefficiencies, electricity pilferage, and unnecessary use of electricity for operations. Encourage private sector investments through a conducive policy environment. This would entail strengthening of mechanisms for attracting investments and public participation; and providing assistance in securing long-term bulk power supply contracts from private sources.
Prioritize the development of renewable energy facilities by providing dedicated funds for the conduct of exploratory and feasibility studies, and by strongly promoting investments in cooperation and partnership with the local governments and communities. Foster a competitive electricity market by laying the groundwork for establishment of the Mindanao Wholesale electricity Spot Market by 2014; and by undertaking comprehensive strengthening of Rural electric Cooperatives.
Provinces in Mindanao 2600 2683 2252 2607 342 76 13.2 2.8 Municipalities in Mindanao 3323 3712 3082 3334 241 378 7.2 10.2 Cities in Mindanao 4822 1906 4736 1608 85 299 1.8 15.7
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Develop a critical mass of experts on various key Mindanao challenges by providing competitive remuneration; ensuring utilization of research work in policymaking and development work; and maintaining integrity and independence of research. Involve young men and women in the implementation of the S&T and R&D agenda by making said agenda their reference for choosing thesis topics and developing research projects in various disciplines. Set up an independent, multi-disciplinary and state-ofthe-art Mindanao Research and Development Center to be professionally run as a corporate entity, with the responsibility of providing evidence-based policy analysis and advice to the government, business and the general public. The Center shall play the role of coordinating entity and clearing house for all Mindanao-pertinent knowledge resources from academe, think tanks and other institutions in and out of Mindanao. Part of its mission shall also be the emergence of world-class Mindanao scholars. Establish a Mindanao Knowledge Network that would be an organic part of the above research center. The Network shall have nodes in various academic or research institutions at various levels (national, regional, provincial, municipal). The network shall regularly collect, process, analyze and disseminate statistical data, information and other research and scientific materials. It shall make these data and resources readily accessible through the network to both decision makers and citizens through various print and electronic media. Enhance technological support for Mindanao-based industries that will aid in the overall economic and human development, e.g.: Provide SMes (a) access to and training on advanced, efficient and environment-friendly technologies and processes; (b) common service facilities for various parts of the business cycle (e.g., processing, packaging, storage, waste management) where required; and (c) capability to access and apply ICT tools for running their enterprises.
Figure 9-16 Mindanao Remittance Value and Share to Total Philippine Remittance (2004-2009, In Million Pesos)
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Develop context-appropriate technologies especially those that can produce new or improved products from indigenous resources such as (a) medicines; (b) renewable energy, (c) metallic products; and (d) organic farming methods to improve yields and shelf lives of produce. establish and equip laboratories for general research support activities and for providing extraordinary services to the public (e.g., DNA testing, otherwise available only in Manila). This may be pursued by (a) providing incentives for private laboratories to locate in Mindanao, and (b) promoting partnerships with private business or foreign research institutions to equip and improve research laboratories in the public and private sectors.
Establish a multi-stakeholder monitoring and evaluation mechanism to ensure that funds are optimally utilized and graft and corruption curtailed. Build capacities of LGUs for entrepreneurial governance so that they may manage their offices like a business enterprise that balances and optimizes the triple bottom line comprised of people (social responsibility), profit (economic development) and planet (environmental integrity). In conclusion, while the preceding chapters have dealt on Mindanao 2020s body, this chapter has examined the roles of the equally important bones (basic framework), represented by the infrastructure base; brain (knowledge support) in the form of science and technology and research and development); and blood (lifeline) which financing represents in the economic system. Without them, Mindanao 2020 will largely remain to be an aspiration.
ChAPTeR 10
Financing
Strengthen fiscal decentralization towards improved local revenue generation and expenditure management, asserting local fiscal responsibility and accountability. This will entail the following initiatives: Upgrade capability and provide incentives for generating higher local revenues and employing innovative financing schemes such as payments for ecological services and municipal bonds flotation. This should be combined with appropriate sanctions for inability to generate a minimum of local revenues and excessive reliance on national government grants via the IRA. Improve efficiency and communication across LGU operational systems, particularly among the financial and fiscal systems through computerization, streamlining and integration, including use of suitable technology tools such as the e-NGAS61 being promoted by the Commission on Audit. Motivate citizens to pay proper taxes through, among others, improved services (performance), simplified procedures (efficiency), and regular information on collected taxes and how these are expended (transparency). Improve LGU management of expenditures by clearly spelling out priorities in CDPs; building capacities in program and project development, implementation and M&e; and streamlining budgeting, budget allocation and releasing, and expenditure accounting and liquidation processes.
Address bottlenecks and issues confronting access and utilization of ODA funds in the medium-term. Together with building capacity for better revenue generation, plan for the eventual downplaying if not phase-out of ODA as a necessary source of development financing. Provide LGUs and their communities greater leeway in determining the uses and in managing funds for local programs of national government agencies. The comprehensive local plans must be the guiding bases for allocation and utilization of all such program funds.
61 Electronic New Government Accounting System
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A plan is nothing more than a blueprint, and a long-term plan is necessarily a blueprint that is broad and largely directional in nature. Mindanao 2020, which covers a 20-year time horizon, somewhat deviates from this characterization and includes specific strategies since it seeks to be faithful to or reflect the sentiments of the true authors, the Mindanawons. In view of this, Mindanao 2020 may be seen to be unique, even unusual, as it is not merely a blueprint but a stronger expression of most Mindanawons of their aspiration for autonomy and selfdetermination. Translating Mindanao 2020 into appropriate action and ensuring that what was set out to be accomplished will be done so in a faithful and timely manner will entail a number of key activities that form part of the complete planning cycle (Figure 10-1). These include (a) policy reforms that could be achieved through administrative action or via legislation, (b) a public investment program that embodies program and project interventions that will help achieve identified development objectives, (c) implementation mechanisms that will define needed interagency coordination, responsibilities and accountabilities, and timeframes of accomplishment and (d) a monitoring and evaluation (M&e) system. While the above primarily refer to the needed action from concerned government entities, there are actions for Mindanao 2020 required of other stakeholders as well. It will thus be useful if various groups and entities in and out of government can be encouraged to prepare respective Action Agenda that define their own actions and measures to contribute to the attainment of Mindanao 2020. This would further assert wider buy-in and concrete support for the framework plan on a continuing basis, and give it more tangible meaning for various groups and organizations.
Authority, Regional Development Councils and ARMM Regional Government, and the Mindanao bloc in the legislature and LGU Leagues, must push forth in refining, promoting and making these reforms happen.
Box 10-1 Strategic Framework for Engagement: Guiding Interventions for Peace and Development in the Southern Philippines
The provinces and cities of Mindanao can be located along a continuum ranging from unstable/fragile to stable/functioning governance. Areas falling under the unstable/fragile end have limited and short-term options for peace and development because the various dimensions of development (e.g. governance, economic, social, etc.) have collapsed and chaos and lawlessness prevail. As cities and provinces move towards the stable/functioning end of the continuum, the situation improves and new and better options become readily available. Based on the position along this conflict and fragility continuum or stability spectrum, the framework identifies the most appropriate and strategic programme interventions for donors and stakeholders to consider. These recommendations are presented as broad sectoral areas of engagement: economic, socio-cultural, human security, governance and political stability. Within each sector, specific interventions are prioritized according to suitability based on the level of conflict and fragility. The framework also helps donors find the right balance of programs that meet urgent conflict-related problems, while investing in longer-term movement towards stabilization and development. Based on conflict and fragility conditions, the framework recommends a system for prioritizing between these types of programmes.
Source: AusAID (2008)
Policy Reforms
From among the numerous imperatives discussed in the preceding chapters could be gleaned a number of key strategic executive and Legislative policy reforms or actions, summarized in Table 10-1. Many of these policy reforms are not specific to Mindanao and have nationwide applicability but they are included in the list since these are critical in the pursuit of Mindanao 2020. At the core of these policies is the fulfillment of the vision and goals of the people of Mindanao (articulated in Chapter 4). The general idea is to have Mindanao take charge of its own sustainable growth and development in peace and harmony, while enhancing the overall well-being of its people and the environment. These reforms are imperative inasmuch as a number of current policies impede the attainment of these aspirations. These reforms will need no less than the concerted and coordinated efforts of the three branches of government (Judiciary, Legislature and executive), the LGUs and the Mindanawons themselves. Responsible coordinating Mindanao authorities such as the Mindanao Development
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determine the efficacy of types and hierarchies of interventions that may be applied to different areas in Mindanao, depending on where they lie on the stability spectrum or conflict and stability continuum (Box 10-1). Tools are also available for guiding program and project design, especially to ensure responsiveness of interventions to multiple dimensions of objectives. This is especially important because the multidimensionality of poverty has become well accepted, implying that interventions to uplift human and community welfare must seek to simultaneously address its social, economic, environmental, political and cultural dimensions. The ActionImpact Matrix (AIM) tool developed at the World Bank Institute by Mohan Munasinghe (2007) was designed to explicitly integrate environmental considerations in designing economic development interventions. The Multistakeholder Integrative Sustainability Planning (MISP) tool promoted by the earth Council 62 expanded the AIM concept to include the other dimensions beyond the economic and environmental in the assessment and design of policies, programs and projects. The selection of the most appropriate tool depends on, among others, the objectives of the exercise, context of planning area, and uses of outputs. For instance, AusAids Strategic Framework was primarily designed for planning and prioritization of peacebuilding and development interventions in Mindanao.63 The AIM tool shows the linkages within the whole planning process, from data gathering to policy application and feedback. It determines interactions among policies and identifies which of these would yield positive or negative results. A participatory investment programming process that undertakes project identification could easily yield a lengthy wish list of projects. Thus, a crucial step in the process is prioritization. There are many approaches to this but a combination of employing a set of criteria and undertaking a participatory exercise to elicit priorities from stakeholders would be well advised, towards achieving a coherent and reasonable P-PIP. In this, the use of tools such as those described above would be helpful. Once the P-PIP is formulated, its resource requirements must be determined so that financing schemes and programs may be drawn up as guide for eventual budgeting by the government, private sector, and other entities involved. It would be useful to proactively promote the P-PIP especially those projects that are open to PPP arrangements.
This highlights the need for a monitoring and evaluation (M&e) framework and approach that would (1) assess progress toward meeting plan objectives; (2) determine when significant deviations are being made from the directions set in the plan, (3) inform mid-course adjustments in order to get back on course toward the goals set forth in the plan, and (4) input into shortand medium-term planning and review of P-PIP. M&e may be undertaken at two levels: (1) plan implementation level, which involves tracking the achievement of set targets and implementation of key policies and strategies; and (2) investment program and specific project level, which assesses physical and financial progress. For both levels, reasons for progress of implementation or lack of it are important to consider and analyze so that upscaling (for adequate implementation) or remedial measures (for delays or lack of implementation) may be given due course. As in planning and programming, M&e requires the participation of implementors especially in government, along with stakeholders. The M&e for Mindanao 2020 is the prime responsibility of MinDA as over-all coordinator for Mindanao development. It should thus take the lead and solicit the cooperation of all concerned.
Policy Reforms Advocacy/joint sectoral/agency planning Financing the Plan and its investment Program Program/Project Implementation M&E (of the M2020/MIP)
M2020
Concluding Remarks
The long-standing challenge for Mindanao and the Mindanawons is to unite and rally behind a widely-shared vision, and collectively and collaboratively work across cultural, political, economic and social divides that have fragmented the island group since time immemorial. It is hoped that the participatory and consultative exercise that led to the articulated vision, goals, thrusts, strategies, and initiatives embodied in this Mindanao 2020 document will impel Mindanawons to bridge those divides, and with 20/20 vision, set their sights on the common goal 20 years hence that they have herein articulated: That of a peaceful, developed and integrated Mindanao that makes a sustainably uplifted quality of life a reality for all Mindanawons.
investment Programming
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64 Major Projects are those have the biggest costs in the sector.
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CHAPTER ANNEXES
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Annex 5A
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1 2 3 4 5
Root Causes of the Armed Conflicts & Social Unrest (Mindanao as part of country-wide analysis) from the National Unification Commission Report 1993. An extract from a report prepared by David G. Timberman Democracy and Governance Adviser USAID/ANe/TS, July 2003 5th Philippine human Development Report (2005) Peace, human Security & human Development in the Philippines published by human Development Network in cooperation with UNDP & NZAID Joint Needs Analysis for Reconstruction & Development of Conflict-Affected Areas in Mindanao 2005 Southern Philippines Peace, Conflict & Development Analysis, 2008 (draft)
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Suminguit, Velorimo J.. 1989. The Subanon culture in Mount Malindang: An ethnography, MA Thesis, Quezon City: University of the Philippines. Tadem, eduardo, Johnny Reyes & Linda Susan Magno. 1984. Showcases of Underdevelopment in Mindanao: Fishes, Forest, and Fruits... (Davao City: Alternate Resource Center Tan, Samuel K.. 2002. The Filipino-American War, 1899-1913. Quezon City: University of the Philippines Press. Taylor, Victor M.. 2006. Developing a Culture of Peace for Sulu. A Tabang Mindanaws Study for Pantabangan BASULTA. Tebtebba Foundation. eds. 2005. We, Indigenous Peoples. A Compilation of Indigenous Peoples Declarations. Baguio City: Tebtebba Foundation. Tebtebba Foundation. eds. 2005. extracting Promises. Indigenous Peoples, extractive Industries & the World Bank. Baguio City: Tebtebba Foundation & Forest People Programme. Second edition. Timberman, David G., Democracy and Governance Adviser USAID/ANe/TS, July 2003. Tiu, Macario D.. 2003. Davao 1890-1910: Conquest and Resistance in the Garden of the Gods. Quezon City: UP Center for Integrative and Development Studies. Torres, Wilfredo ed. 2997. Rido: Clan Feuding and Conflict Management in Mindanao. Makati: The Asia Foundation. Towards a Federal Republic of the Philippines with a parliamentary Government: A Reader. Marikina City: Center for Social Policy and Governance, Kalayaan College, 229-232 Tuazon, Bobby M.. 2008. Moro Reader. history and Contemporary Struggles of the Bangsamoro People. Quezon City: Center for People empowerment and Governance (CeNPeG) Publications. Vidal, Aida, Conflicting Laws, Overlapping Claims: The Politics of Indigenous Peoples Land Rights in Mindanao. Davao City: AFRIM - Mindanao Focus, 2004. Vitug, Marites Danguilan & Glenda M. Gloria. 2000. Under The Crescent Moon: Rebellion in Mindanao. Quezon City: Ateneo Center for Social Policy & Public Affairs, Institute for Popular Democracy. Walpole, S.J., Peter et al. 1993. Upland Philippine Communities: Guardians of the Final Forest Frontiers. Southeast Asia Sustainable Forest Management Network Research Network Report No. 4, August. Walpole, S.J., Peter. 2010. Figuring the Forest Figures: Understanding Forest Cover Data in Philippines and Where We Might Be Proceeding, Technical Report and Analysis. Quezon City: eSSC in partnership with the Philippine Tropical Forest Conservation Fund (PTFCF). (http://essc.org.ph/content/view/398/1/) Warren, James Francis. 1985. The Sulu Zone, 1763-1898. Quezon City: new Day Press. Bangko Sentral ng Pilipinas (BSP). Online Statistics. Bureau of Agricultural Statistics (BAS). Various Years. Country Statistics. Bureau of Investments (BOI). Various Years. Investment Data. Civil Aviation Authority of the Philippines (CAAP), Categories of Mindanao Airports by Region Civil Aviation Authority of the Philippines (CAAP), 2009-2010 Busiest Philippine Airports Civil Aviation Authority of the Philippines (CAAP), 2008-2009 Regional shares & growth rates in air passenger traffic Commission on higher education (CheD), 2007-2010 Centers of excellence in Information Technology education Department of education (Deped), education Statistics Department of energy (DOe), 2010-2030 Mindanao Demand-Supply Outlook, 2009-2030 Philippine Development Plan. Department of energy (DOe), 2002-2009 Power Generation in Mindanao. Department of energy (DOe), 2009 Sales & Consumption of electricity in Mindanao. Department of energy (DOe), 2005-2009 System Losses. Department of health (DOh)-Field Implementation Management Office, Mindanao health Profile CY 2009 Department of Tourism (DOT) - Regional Offices IX and ARMM. Various Years. Tourist Arrivals Data. Department of Tourism. 2011. 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National economic Development Authority (NeDA),Regional Development Plans of Regions IX, X, XI, XII, XIII and ARMM (2004-2010) National economic Development Authority, in cooperation with United Nations Development Programme, and Government of New Zealand and the Australian Agency for International Development, 2010 Progress Report on the Millennium Development Goals, 2009 National Grid Corporation of the Philippines (NGCP), 2002-2009 Mindanao energy Capacity & Capability by Plant Type National Statistical Coordination Board (NSCB). Various years. Philippine Statistical Yearbook. National Statistics Office. 2000. Census of Population. Manila. National Statistics Office. 2006. Family Income and expenditure Survey. Manila. National Telecommunications Commission (NTC), 2007 Telephone Subscribers by Region National Youth Commission, National Framework for Youth Development 2005-2010 (Medium Term Youth Development Plan), 2004 Office of the President for Mindanao. 1995. Mindanao 2000 Development Framework Plan. Integrative and Sectoral Reports (Volumes1-17). Philippine Ports Authority (PPA), 2001-2009 Cargo throughput Philippine Ports Authority (PPA), 2001-2009 Container traffic Philippine Ports Authority (PPA), 2007-2010 Vehicles carried by RO-RO in Mindanao The Tripoli Agreement, 23 December 1976. The final agreement on the implementation of the 1976 Tripoli Agreement between the Government of the Republic of the Philippines (GRP) and the Moro National Liberation Front (MNLF) with the participation of the Organization of Islamic Conference Ministerial Committee of Six and the Secretary General of the Organization of Islamic Conference. United Nations Development Programme. Various Years. human Development Report. UNDP, New York. World Bank. 2003. Philippines environment Monitor. World Bank Manila Office.
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Journals
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International Documents
UN Universal Declaration of human Rights, 10 December 1948 by the General Assembly of the United Nations. ILO C107 Indigenous and Tribal Populations Convention, 1957. Convention concerning the Protection and Integration of Indigenous and Other Tribal and Semi-Tribal Populations in Independent Countries International Labour Organisation Convention 169. Convention Concerning Indigenous And Tribal Peoples In Independent Countries. 7 Jun 1989 UNeSCAP. 2006. Green Growth at a Glance: The Way Forward for Asia and the Pacific. Bangkok, Thailand. United Nations Declaration on the Rights of Indigenous Peoples. Adopted by General Assembly Resolution 61/295 on 13 September 2007 World Bank. Joint Needs Assessment for the Reconstruction and Development of Conflict-Affected Areas in Mindanao. human Development Report. Volume 2. December 2005. Produced jointly by the Government of the Philippines, International Funding Agencies and Mindanao Stakeholders. World Bank. 2003. Philippines environment Monitor. World Bank Manila Office. World Bank. Joint Needs Assessment for the Reconstruction and Development of Conflict-Affected Areas in Mindanao. human Development Report. Volume 2. December 2005. Produced jointly by the Government of the Philippines, International Funding Agencies and Mindanao Stakeholders.
Websites
http://www.actforpeace.ph/content/view/44/50/ http://ridomap.com/ http://en.wikipedia.org/wiki/File:Makassar.png http://flood.firetree.net http://ochaonline.un.org/Default.aspx?alias=ochaonline.un.org/humansecurity. The United Nations on human Security. http://www.ee.enr.state.nc.us/public/ecoaddress/riverbasinsmain.htm) North Carolina Office of environmental education and Public Affairs
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ACRONYMS
ACT for Peace ADB ADZs AFMP AFP AFRIM AFTA AIM AO ARMM ASeAN ASG AusAID AUTO-Mindanao AVLDA BAS BAWASA BDA BIMP-eAGA BLGF BOT BOI BOSS BPO BRIC BSP BUC CAAP CADT CAhRIhL CALT CASeR CBeT CBRM CCPD CCT CDA CDD CDPs CeC CePALCO CheD ChS CICT CLIC CLUPs CMeP CMT CO2 COA COMeLeC CPP CSO CTI DA DAR DDR DeNR Deped
- Action for Conflict Transformation for Peace - Asian Development Bank - Area Development Zones - Agriculture and Fisheries Modernization Program - Armed Forces of the Philippines - Alternative Forum for Research in Mindanao - ASeAN Free Trade Area - Action-Impact Matrix - Administrative Order - Autonomous Region of Muslim Mindanao - Association of South east Asian Nations - Abu Sayyaf Groups - Australian Agency for International Development - Association of Unified Tourism Officers Mindanao - Allah Valley Landscaped Development Alliance - Bureau of Agricultural Statistics - Barangay Water and Sanitation Associations - Bangsamoro Development Authority - Brunei-Indonesia-Malaysia-Philippines - east ASeAN Growth Area - Bureau of Local Government Finance - Build-Operate-Transfer - Board of Investments - Business One-Stop Shop - Business Process Outsourcing - Brazil, Russia, India and China - Bangko Sentral ng Pilipinas - Bishop-Ulama Conference - Civil Aviation Authority of the Philippines - Certificate of Ancestral Domain Title - Comprehensive Agreement on human Rights Law and the International humanitarian Law - Certificate of Ancestral Land Title - Comprehensive Agreement on Socio-economic Reforms - Community-Based ecotourism - Community-Based Resource Management - Caraga Council for Peace and Development - Conditional Cash Transfers - Community Development Approach - Community-Driven Development - Comprehensive Development Plans - Community e-Center - Cagayan electric Power and Light Company - Commission on higher education - Commission on human Security - Commission on Information and Communication Technology - Computer Literacy and Internet Connection - Comprehensive Land Use Plans - Comprehensive Mindanao education Program - Cellular Mobile Telephones - Carbon Dioxide - Commission on Audit - Commission on elections - Communist Party of the Philippines - Civil Society Organization - Coral Triangle Initiative - Department of Agriculture - Department of Agrarian Reform - Disarmament, Demobilization and Re-integration - Department of environment and Natural Resources - Department of education
DFA DGMC DILG DIPO DNA DOe DOF DOh DOJ DOLe DOST DOT DOTC DPWh DSWD DTI DUs eGCs eNR eO ePIRA eRIA eRC eSSC eU e-NGAS FeLCRA FeLDA FGD FIeS FPA FPIC FTAAs GAA GDF GDI GDP GeM GIS GOP GRAM GRDP GRP GVA GWh hDI hDR heIs hIV/AIDs IAG IBRA ICeRA ICT IDP IeC IFAD IFC IhL IMR IPs IPRA IRA ITh IUCN
- Department of Foreign Affairs - Davao Gulf Management Council - Department Of Interior and Local Government - Directorate for Police Operation - Deoxyribonucleic Acid - Department of energy - Department of Finance - Department of health - Department of Justice - Department of Labor and employment - Department of Science and Technology - Department of Tourism - Department of Transportation and Communications - Department of Public Works and highway - Department of Social Welfare and Development - Department of Trade and Industry - Distribution Utilities - economic Growth Clusters - environment and Natural Resources - executive Order - electric Power Industry Reform Act - economic Research Institute for Asia - energy Regulatory Commission - environmental Science for Social Change - european Union - electronic New Government Accounting System - Federal Land Consolidation and Rehabilitation Authority - Federal Land Development Authority - Focus Group Discussion - Family Income and expenditure Survey - Final Peace Agreement - Free, Prior and Informed Consent - Financial and Technical Assistance Agreements - General Appropriations Act - Global Development Finance - Gender-related Development Index - Gross Domestic Product - Growth with equity in Mindanao - Geographic Information Systems - Government of the Philippines - Generation Rate Adjustment Mechanism - Gross Region Domestic Product - Government of the Republic of the Philippines - Gross Value Added - Gigawatt-hour - human Development Index - human Development Report - higher education Institutions - human Immunodeficiency Virus/ Acquired Immunodeficiency Syndrome - Institute for Autonomy and Governance - Ilana Bay Regional Alliance - Incremental Currency exchange Rate Adjustment - Information and Communication Technology - Internally Displaced Person - Information, education and Communication - International Fund for Agricultural Development - International Finance Corporation - International humanitarian Law - Infant Mortality Rate - Indigenous Peoples - Indigenous Peoples Rights Act - Internal Revenue Allotment - Income Tax holiday - International Union for Conservation of Nature
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JBIC JICA KALAhI-CIDSS KFAeD LBDA LGC LGU LTO MCT MDGs MDP MeDCo MFO MGB MICe MILF MinBC MinDA MinTC MinTVeT MISP MNLF MOA-AD MPSAs MSMes MW MWh M&e NAP NCIP NCMF NCR NDCC NDF NeDA NG NGA NGCP NGOs NIA NorminVeggies NPA NPC NReB NSCB NSO NTC NTDP NUC NWRB NZAid ODA OFW OMA OPAPP PALMA PCCI PCID PCDA
- Japan Bank for International Cooperation - Japan International Cooperation Agency - Kapit Bisig Laban sa Kahirapan-Comprehensive and Integrated Delivery of Social Services - Kuwait Fund for Arab and economic Development - Lanuza Bay Development Alliance - Local Government Code - Local Government Unit - Land Transportation Office - Mindanao Container Terminal - Millennium Development Goals - Mulit-Donor Assistance Program - Mindanao economic Development Council - Major Final Output - Mines and Geosciences Bureau - Meetings, Incentives, Conferences, exhibitions - Moro Islamic Liberation Front - Mindanao Business Council - Mindanao Development Authority - Mindanao Tourism Council - Mindanao Technical-Vocational education and Training Association - Multistakeholder Integrative Sustainability Planning - Moro National Liberation Front - Memorandum of Agreement on Ancestral Domain - Mineral Production Sharing Agreements - Micro, Small and Medium enterprises - Megawatt - Mega Watt hour - Monitoring and evaluation - National Action Plan - National Commission on Indigenous Peoples - National Commission on Muslim Filipinos - National Capital Region - National Disaster Coordinating Council - National Democratic Front - National economic Development Authority - National Government - National Government Agency - National Grid Corporation of the Philippines - Non-Government Organizations - National Irrigation Administration - Northern Mindanao Vegetable Producers Association, Inc. - National Peoples Army - National Power Corporation - National Renewable energy Board - National Statistical Coordination Board - National Statistics Office - National Telecommunications Commission - National Tourism Development Plan - National Unification Commission - National Water Resources Board - New Zealand Aid Program - Official Development Assistance - Overseas Filipino Workers - Office of Muslim Affairs - Office of the Presidential Adviser on the Peace Process - Pigcawayan, Alamada, Libungan, Midsayap and Aleosan - Philippine Chamber of Commerce and Industry - Philippine Council for Islam and Democracy - Peace, Conflict and Development Analysis
PDAs PDAF PDCs PeACe PeS PhDR PhP PIP PMO PNP PNVSCA POs POC PPA PPP P-PIP PRIMeD PSALM RAM RA RD RDC RDIP RDP RORO RPM-M RPOC R&D S&T SB SFP SLAM SMe SMI SPCPD SPDA SPF SPTC SRA SRNh SRI SSR StRIDe SUCs SZOPAD TeSDA TeZs TIeZA TMC TVeT UN UNeSCAP UNDP US USAID VAWC VC VeCO VFA VIDA WB WeSM WTO YOU
- Peace and Development Advocates - Philippine Development Assistance Fund - Peace and Development Communities - Partnerships enabling Active Community empowerment - Payments for ecological Services - Philippine human Development Report - Philippine Peso - Public Investment Program - Philippine Management Offices - Philippine National Police - Philippine National Volunteer Service Coordination Agency - Peoples Organization - Peace and Order Council - Philippine Ports Authority - Public-Private partnership - Public-Private Investment Program - Peace and Reconstruction Imperatives for Mindanaos enhanced Development - Power Sector Assets & Liabilities Management Corp - Rebolusyonaryong Alyansang Makabansa - Republic Act - Regional Director - Regional Development Council - Regional Development Investment Program - Regional Development Plan - Roll-on Roll-Off - Rebolusyonaryong Partido ng Manggagawa Mindanao - Regional Peace and Order Council - Research and Development - Science and Technology - Scenario Building - Soldiers of the Filipino People - Southwestern Ligawasan Alliance of Municipalities - Small and Medium-sized enterprises - Sagittarius Mines, Inc. - Southern Philippines Council for Peace and Development - Southern Philippines Development Authority - Special Purposes Funds - Southern Philippines Tourism Council - Social Reform Agenda - Strong Republic Nautical highway - System of Rice Intensification - Security Sector Reform - Strengthening Response to Internal Displacement - State Universities and Colleges - Special Zone of Peace and Development - Technical education and Skills Development Authority - Tourism enterprise Zones - Tourism Infrastructure and enterprise Authority - Taganito Mining Corporation - Technical-Vocational education and Training - United Nations - United Nations economic and Social Commission for Asia and the Pacific - United Nations Development Programme - United States - United States Agency for International Development - Violence against Women and Children - Value Chain - Visayan electric Company - Visiting Forces Agreement - Volunteer for Information and Development Assistance - World Bank - Mindanao Wholesale electricity Spot Market - World Trade Organization - Young Officers Union
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LIST OF CO-AUTHORS
KEY INFORMANTS
Pres. Fidel V. Ramos, Chairman Nur Misuari (MNLF), Vice Chairman Ghadzali Jafaar (MILF), Sec. Teresita Quintos-Deles, Sec. Annabelle Abaya, Usec. Austere Panadero, Gov. Daisy Fuentes, Vice-Gov. Emmanuel Piol, Mr. Paul Dominguez, Mr. Roberto Sebastian, Mr. Vicente Paterno, Dr. William Dar, Mayor Muslimin Sema, Mayor Celso Lobregat, Mayor Peter Miguel, Dr. Steven Rood, Ms. Amina Rasul-Bernardo, Mr. Rey Teves+, Mr. Vic Lao, Mr. Sebastian Angliongto, Mr. Roger Gualberto, Mr. Rey Cain, Commodore Carlos L. Agustin, Dean Roel Ravanera, Dr. Fermin Adriano, Prof. Moner Bajunaid, Bgy. Capt. Julpikar Ladjahali, Former Bgy. Capt. Dastara Bakki, Mr. John Perrine, Mr. Guido Alfredo A. Delgado, Dr. Rolando T. Dy, Arch. Felino Jun Palafox Jr., Mr. Ed Bullecer, Mr. Rey Quisumbing, Atty. Jose Cabato, Chancellor Marcelo P. Salazar, RD Ma. Lourdes D. Lim (Hadja Sittie Mariam D. Lim), Ms. Irene Santiago, Ms. Nelia Agbon, Ms. Carmencita Cochingco, RD Arturo Valero, RD Leon Dacanay, RD Teresita Socorro T. Ramos
Communicators Forum November 27, 2009 Marcy Ballesteros, Ma. Theresa Reyes-Castillo, Carlos Conde, Lala Rimando, Albert E. Alejo, SJ, Dax Caedo, Blogie Robillo, Samira Gutoc-Tomawis, Jenny Grace M. Mendoza, Eden L. David, Perlie Ray Bernasori, Evelyn Deligero, Ma. Cecilia Rodriguez, Emmanuel Garcia, Clarice L. Bautista, Charina Sanz, Heike Staff, Dionisio T. Alave Jr., Zen Darlene Lucero, Mary Bernadette P. Suarez, Monette Parado, Mark Guillermo, Rudolph Alama, Geejay Arriola, Amalia Cabusao, Maya Vandenbroeck, Myra G. Julia, May Che B. Capili, Ferdinand S. Esguerra CARAGA Stakeholders/Caraga Conference for Peace and DevelopmentDecember 8, 2009 Rene K. Burdeos, Jonjie Asis, Col. Rodrigo Diapana, Roel Pariza, Sammy S. Suico, Lucena Villagonzalo, Bella Gonzales, Fr. Lito Clase, Ruben Isiderio, Moses Villagonzalo, Bong Mohammad, Ricardo Dequina, Virginia Rosales, Elizabeth Borde, Sr. Mely Genoso, Merlyn Oyoc, Martin Gamisa, Bishop Juan de Dios Pueblos Kidapawan IPs and Stakeholders - January 16, 2010 Nida B. Fernandez, Datu Andong Takinan, Teodora Gaum, Bebot M. Salingan, Judy B. Fernandez, Datu Quiambao Ayag, Harry M. Lusterio, Elencio Tipunar, Romulo C. Gonzales, Ofelia P. Pangako, Cristina Walan, Marivic Pontongan, Mila A. Ipag, Vic Capilitan, Era Dayate Resa Espana, Ervin Juit, Bo-I Era Espana, Eduardo V. Daquipa, Amy P. Takinan, Randy A. Diamse National Ulama Representatives January 25, 2010 Daguit Abdulhadi, Taharudin Piang Ampatuan, Dr. Aboulkhair S. Tarason, Sharif Jul Asiri Abirin, Ust. Ping A. Kasim, Ebra Minalang Moxsir Iligan Stakeholders/Iligan Institute of Peace and Development (IPDM) February 06, 2010 Mike D. Taratingan, Jayshree Boot, Jun Tenorio, Elizabeth L. Codilla, Bernabe Q. Sanchez, Divina M. Suson, Butch Alcudia, Cora Jarales, Col. Leo Ferrer, Ted Khan Juanite, Arlieto Berlan, Sultan Ibrahim Camona, Felecitas A. Nillas, Muhda Cacusna, Norodin Lucman, Musa M. Sanguila, Vida S. Ventanilla, Lorry V. Gainile, Karen R. Veloso, Norberto Oller, Ustadz Abdulbayaw Regaro, M.J. Ambalong, Mohammad Mon-EmAbangad, Marilou S. Nanaman, Ph.D., Aileen Chris C. Arellano, Pastor Reu Montecillo, Monalinda E. Doro, Acsani D. Macalawi, Presciosa Derro, Rex Ortega, Regina Nanette Antequisa, Gloria Fernando, Alita T. Roxas, Saturnina S. Rodil, Jordan Juanday, Kerslin Proebslel, Farhaidah Abbas, Sarah Jean Delfin, Rocelyn E. Labalan, Myza Karina P. Guinta, Nimfa L. Bracamonde Zamboanga Stakeholders March 09, 2010 Alberto Francisco, Jun Varel, Susan Valerio, Arturo Valero, Joseph Greganh, Renato He, Dante Corteza, Ma. Pilar Dayaganon, Weng Agudera, Aurora Bulalacao, Ma. Nelida Rojas, Anthony Sabas, Manolette Jude Mercado C4D FGD in Davao City May 06, 2010 Amalia Cabusao, Antonio M. Ajero, Walter Balane, Adroel Alcober, Dax Caedo, Oliver Robillo, Leah Bugtay, Noel Provido, Norodin Lumambas FGD with Media in Pagadian City June 18, 2010 Noemi B. Edaga, Gidem C. Corgue, Myrna S. Tubat-Lumacad, Leo Santillan, Nestor C. Commendador, Mercy Ytang-Paares, Zacarias Digman, Ian Samonte, Vanessa E. Cagas, Nellyn Evangelista FGD with Media in General Santos City June 22, 2010 Joze Aponesto III, Dodin Delima, Sandino Romero, Jay Dayupay, Alt Tagalogon, Jhun Sucayre, Rejoice Fresco, Cathy Apelacio, Robert Pagadura, Faith Barcelona FGD with ICT Practitioners June 28, 2010 Teofilo Pasaway, Chris Bunag, Emmanuel M. Lagare, Fred Nader, Felix Maminta, Capazao Taban, Bert Barriga, Jaime B. Paralisbo, Wit Holganza, Luz G. Galda, Nelly Agabin, R. Balondo, Sam Matunog, Olomadin M. Hadjiazis, Oliver Robillo, Ladislao Tabanao FGD with Media in Butuan City July 08, 2010 Loriemae Prudente, Katherine Genn Guerra, Robespierre Tradio, Gerie Soco, Nora Molde, Robert Roperos, Ernie M. Ofianga Jr., Ethel A. Simyunn, Litz Flaviano, Lily Joy Sanchez, Ma. Lourdes Pizarro-Apego, Noel B.
CONFERENCE
Kusog Mindanaw Conference 2010 July 08-10, 2010 Don Mustapha Arbison Loong, Drieza Abato Lininding, Christine Vertucci, Danilo Bustamante, Concepcion Asis, Ibarra Bong Malonzo, Paul Paraguya, Saipona Zaman, Col. Diosdado Carreon, Ltc Pat Amata, Ltc Alexei Musgi, Eileen Ipulan Bautista, Atty. Naguib Sinarimbo, Efren Sissay, Col. Leopoldo Galon Jr., Samira Gutoc-Tomawis, Ben Aspera, Kaloy Manlupig, Benjamin Bagadion, Ismael Abubakar Jr., Irene Santiago, Jolly Lais, MGen Anthony Alcantara, Lito Lorenzana, Maj Ruben Guinolbay, Migdenio Dondon Clamor Jr., Grace Rebollos, Jose Manuel Mamauag, Atty. Camilo Bong Montesa, Fr. Jad Calumpong, Cris Cayon, Steve Arquiza, Vice Mayor Alexander Tomawis, Atty. Camar Tago, Edtami Mansayagan, Fairudz Ebus, Arthur Tangara Jr., Deng Giguiento, Myla Leguro, Leah Bugtay, Jo Quianzon, Rafael Nabre, Patricia Sarrenas, Karlos Manlupig, Cong. Maximo Rodriguez Jr., Cong. Maria Isabelle Climaco, Col. Casiano Monilla, Maria Theresa Pia Zamora, April Jhim dela Cruz, Gov. Lala Talinio Mendoza, Alberto Sipaco Jr., Gus Miclat, Efren Elbanbuena, LtGen Raymundo G. Ferrer, Fr. Eliseo R. Mercado Jr., Mary Jacqueline C. Fernandez, Joel D. Dizon, Omar Tadeja, Margo Mercado
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Najarro, Rei M. Bransan, Al Villaceran, Cecil Ybaez, Richmond Hinayis, Rene C. Bucag Jr., Abner Caga, Mike Crismundo, Aurelio Conde FGD with Media in Zamboanga City July 13, 2010 Minsara A. Muarip, Hader A. Glang, R.G. Antonet Go, Allen L. Abastillas, Michael Vincent Cajulao, Jewel M. Reyes, Karen Barba, Bernie Concepcion, Sonny Sakilin, Jowel Canuday, Rondell Rey Q. Savella, Darwin Wee, Letty Militante, Dante Corteza, Manz Haril FGD with the Youth Sector in Mindanao, 28 August 2010 Josiah F. Tuballa, Nieves L. Forti, Nurhida A. Asaali, Richie Cayanong, Matthew A. Lines, Abdul-Alim Alsad, Dyan Aimee Rodriguez, Nora Tortola, Eugin Pol Rubin, Michel Caseros, Aquilino Flores, Rosalie Beliran, Sheena Mae Onlos, Jun Mark Amban, Joan Basoc, Aristotel Casanova, Genevieve Pamaran, Sheryl Mancha, James Ryan Buenacosa, Jaffy Paul Febreo, Marvin Acanto Toralba, Jonamae Gamueta, Mark Vincent Paciente, Lary Lahing, Ethel Simyunn, Karen Grace V. Lim, Marjun R. Encendencia, Charles Jefferson M. Montes, Mary Grace Narvasa, Philip Alvar, Kash Lauto, Bhadria Khara, Jashmine Pagrangan, Pilot Manan, Saminoden Ampaso, Hashmion Aratuc, Richelin Tolones, Myrna Cestina, Bane Agbon, Prof. Nonoy Tomacruz, Steve Lawrence Arquiza, Atty. Marvic Leonen, Iris Mae Ferraris MinDA FGD on Mindanao 2020 Agenda January 15, 2011 Anthony M. Penaso, Ting Ngujo, Joel I Fernandez, Amelyn M. Obial, Iso Montalvan, Gregs G. Villanueva, Rosa Virginia Olaya, Marc P. Olaya, Karlwin C. Montena, Enrique Neminzo, Jr., Oscar V. Paule, Virgilio Balansag, M.L. Solim, Angel S. Jimenez, Moises Faeutes, Alexander Bautista, Jou Galar, Glicerio J. Tatay Boy Tan, Dante Cuevas, Samuel S. Te, Zenaida Cuevas, Crispin Doldoloza, Joseph G. Pasilan, E. Mikayabal, Andres Villaro, G.L. Tatay Boy Tan, Edmundo Garcia, MD, Toefe, Arcadio S. Lanzon, Edwin Mendoza, Nestor C. Bita, Randy V. Liwanan, Genaro O. Guipetacio, Ananias, Summuel S. Buyas, Ryan L. Nazareno, Anacleto T. Macias, Jaylourd V. Echavez, Emma P. Asok, Jemil, Emmanuel Alkuino, Reyna Alkuino, Kastner Perey Amores Meeting with the Tawi-Tawi Mayor and Chamber of Commerce February 28, 2011 Mayor Jasper Que, Lordneal D. Tiozon, Hania H. Aliakbar, Moh. Nur Bahad, Mary Ann L. Adbulmonap, Ma. Vema L. Gatrieles, Hja. Meng B. Rodglal, Rasil S. Inoro Ateneo De Zamboanga University - Strategic Planning for Social Development March 01, 2011 Fr. Tony Moreno, SJ. Pres. ADZU, Fr. Albert Alejo BTI-Consultant *With Administrators and Social Development Units of ADZU Regional Development Council 12 November 10, 2009 Gov. Miguel Rene A. Dominguez, Shahrir B. Duldoco, Teresita Socorro C. Ramos, Joy R. Sevilla, Phlorita A. Ridao, Cocoy Sexcim, Karl Vincent M. Queipo, Ladja M. Sapal, Rolando S. Doria, Maesmen Belisario, Buagas B. Sulaik, Bong A. Butiong, Richard Amparo, Mercy Haw, Tomas M. Rodriguez, Bing Ganchero, Almanzor M. Dataya, Abdulgamal Dipantar, Abdullah B. Dumama Jr., Marfenio Tan, David L. Padlan, Joseph Gecosala, Mae Ester Guimadel, Rene Paraba, Helen L. Vestal Regional Development Councils 13 Executive Committee December 8, 2009 Governor Ma. Fe Valentina Plaza, Ricardo N. Varela, Elvira G. Catuburan, Cecil R. Lopez, Dulmar Raagas, Lucille L. Ytac, Nilo P. Demercy, Jr., Emmanuel Z. Gidacan, Amado M. Posas, Jimmy G. Maquilan Hon. Edna M. Oan, Alvino Atacador, Carlito G. Yebes, Jr., Sandy Barcelon, Alicia B. Millana, Dmianon Uanme, Hector G. Quilang, Rejin Ondo, Elvie C. Ato, Felix R. Espeso, Leo Geron, Alejandro S. Otacan, Melanie Maur, Ma. Jazmin M. Sarce, Ruth E. Sanchez, Seldio L. Picongo Regional Development Councils 10 Executive Committee February 05, 2010 Arsenio Sebastian, Almarco Brito, Engr. Leon Dacanay Jr., Linda Boniao, Gil R. Balondo, Liza V.M. Alcantar, Rochelle Mordeno, Nicanor Peralta, Lourdes Pagaduan, Lourdes Rudinas, Nicandro Borja, Frida Fe Ganade, Mamapok Diro, Ma. Theresa Allen, Atty. Evelyn Ramos, Wilson Amad, PSSUPT Lyndel Desquitado, Lordilie Enjambre, Ltc. Jose Leonard Gille, Ariberto Gualberto, Maita Ignacio, Dr. Hector San Juan, Karen Q. Yee, Perigine Cayadong-Encarquez, Jasper Ola, Efren Berbas, Dr. Enrique Ampo, Carmen Bardilas, Abram Abanil,
Evelyn Feniza, Juanito Demetrio, Engr. Ferdinand Asinas, Miriam Fuentes, Engr. Allan Olavides, Marigold Garrido, Leonilla Cajarte,Rey Anthony Molina, Yvonne Evasco, Datu Tommie Labaon, Michael Ignacio, Jordan Ian Apat, Elsa Silfauan, Robinson Ladera, Rio Yonson Regional Economic and Development Planning Board (REDPB) (Cotabato City) February 18, 2010 Dr. Carmencita Aquino, PZ Teng Enok, Taha Alibiratur, Hja. Pombaen Kade, Hayat M. Pilas, Calangit D. Macabumbun, Col. Maguidala Diamadden, Abdulhamin Bandahala, Adjuria Kusain, Dha-Rifah S. Kali, Kamaludin Laguiab Jr., Rudy So, Lininding Lao, Fredelino Genospe, David Ali, Karsum Astih, Baintan A. Ampatuan, Darwin Unga, Omarkhayyam Dalagan, Mussah Halribulla, Dr. Abubacar Datumanoy, Akmad Sali, Romeo Diocolano, Karmina Muhmin, Engr. Mlang U. Madal, Assib Ibrahim, Saripada Pacasum Jr., Pagras Bihar, Mangondaga Madid, Endatun Talusan, Macapado Benito, Abdulgalib Halud, Sultan Usman Sarangani, Amraida R. Menting, Umalkaise Musa, Abdulganoi Cadir, Abdelnazir Mohammad Isa, Gani Petron, Al-Habson Antao, Kanggo Umal, Zenaid Ating, Sammy Ibrahim, E. O. Sapto, Efren Sissay, Ligaya Lumaque, Abdulrackman Meuna, Josephine Maukit, Hadja Pambaen Karon-kada, Santiago Siva, Asssy. Zia Alonto Adiog, Rebecca Karim, Tati Odasan, Ammia Arsimao, Ansari Andat, Eduardo Chan, Henry Silva, Modariza Hasmin, Juliet Grace de Eyoy, Atty. Ishak Mastura, Gerlita Quitor, Bai Henrieta Paglas, Macapagal Nawi, Janimah Pandi, MD, Alminda Ladja, Atty. Ashrafia Biruar, Umaya Adil Salik, Majubir Rahman Alonto, Bassit Accoy, Nagwib Sinarimbo, Romeo Sema, Arbaina Tuansi, Raul Paluas, Elizabeth Natano, Nazir Ibrahim, Rosalinda May Bai Sampula, Hamid Bayao, Daisy Angas, Aida Dansao, Evelyn Estorquia, Nenita Estomata, Johan Sinarimbo Regional Development Councils 9 Executive Committee March 08, 2010 Aminda, Elored Fonollera, Joseline Fernandez, Briggs Badon, Dr. Grace Rebollos Pres. WMSU, Ustadz Abdullah Ibrahim, Fr. Antonio Moreno, S.J., Al M. Alhabshi, Fr. Pedro Rufo Soliven, Roberto Ko, Sr. Emma Delgado, Richard Chan, Violeta S. Alejandro, Efren Wee, Rolando Santos, Fidel Gatasi, Teddy Kahil, Zorayda Infante
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WORKSHOPS
Workshop on Min2020 Mindanao Education Sector September 21, 2010 Dir. Zenaida D. Gersana, Dir. Ofelia Domingo, Dir. Susan Sautap, Dir. Nilda C. Espiritu Santo, Dr. Carmencita B. Aquino, Marilou Olayan, Abram Abanil, John Simborias, Luzminda O. Onoy, Ariyan B. Paana, Hanar H. Masasayon, Bayani Gofredo, Atty. Morakib Maruhomsalic, Deliciosa Males, Virginia Besana, Rolando M. Palencia, Albert Gutib, Abigail Eupena, Dennis V. Bodilles, Jay Camina, Dr. Perlas Funa, Dir. Irene Floro, Dr. Fedelinda Tawagon, Joel N. Sagadal, Prof. Alma Eleazar, Dr. Sophremiano B. Antipolo, Rachel Navarez, Soverina J. Tagubase, Diosita Andot, Genevieve Arcillas, Hazel Lozada, Gil Dy-Liacco, Bermiditta G. Garzon, Nancy Ebuenga, Deborah Moulton, Scenario Building Workshop November 19-20, 2009 Usec. Virgilio Leyretana, ARD Mlang U. Madir, Lt. Gen. Raymundo Ferrer, Asec. Bong Montesa, Sec. Jess Dureza, Edgar Bullecer, Sebastian Angliongto, Roberto W. Ansaldo, Michael Angelo Yambok, Datu Mussolini Lidasan, Ruby Andong, Datu Saliling, Irene Santiago, J. Andres Ignacio, Willy Nuqui, Dr. Grace Rebollos, Aileen Toohey, Mr. Peter Bartu, Gi Domingo QUICK SURVEY ELECTRONIC SURVEYS 374 Respondents Gen. Santos-15, Marawi-21, Davao-70, Maguindanao-8, Lanao del Sur-6, Cotabato-2, Cagayan de Oro-11, Iligan-12, Malaybalay-4, Butuan-5, Kidapawan-2, Zamboanga-22, Sultan Kudarat-5, Sarangani-9, Misamis Or-3, Tagum-4, Panabo-4, Koronadal-3, Pagadian-1, Tawi-Tawi-9, Davao DN-3, Davao Oriental-4, Surigao-7, N. Cotabato-3, S. Cotabato-4, Sulu-14, Basilan Zamboanga del Sur-11, Bukidnon-12, Agusan-3, Digos-1, Palawan-1, Other than Mindanao-72. PARTNERS/COOPERATORS Australian Agency for International Development (AusAID), ACT for Peace Program, Kids for Peace Foundation, Initiatives for International Dialogue (IID), Mindanao Commission on Women, Mindanao Peace Weavers, Mindanao Peoples Caucus, Mindanawon Initiatives for Cultural Dialogue, Philippines-Australia Human Resource Development Facility (PAHRDF), The Asia Foundation (TAF), United States Agency for International Development-Growth with Equity in Mindanao (GEM)
Cielito F. Habito, Team Leader & Lead-Economy and Environment; Ella S. Antonio, Team Coordinator & Lead-Enabling Conditions; Fr. Eliseo Mercado Jr., OMI, Lead-Peace and Security; Fr. Albert Alejo, S.J. and Marian P. Roces, Co-Lead-Human Development and Social Cohesion; Antonio G.M. La Via, Lead-Governance, Institution and Politics; Edtami Mansayagan, Member; Rudy Rodil, Member; Samira Gutoc-Tomawis, Member; Irene M. Santiago, Contributor-Gender Dimension; Environmental Science for Social Change represented by Fr. Pedro Walpole, S.J., Contributor-Environment and Natural Resources Dimension; Asian Institute of Journalism and Communication represented by Ramon R. Tuazon, Contributor-Communication for Development Plan
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Copyright 2012 Mindanao Development Authority All rights reserved. No part of this book may be used or reproduced without prior consent of the publisher. Mindanao 2020 Peace and Development Framework Plan 2011-2030
ISBN Printed and bound in Davao City, Philippines Published by the Mindanao Development Authority (MinDA) with funding support from the Government of Australia through the Australian Agency for International Development (AusAID)
About the cover: The Mindanao 2020 Peace and Development and Framework Plan (M2020) shall be the weaver of different peoples, histories, concepts and initiatives. The resulting fabric will represent a transformation of Mindanaos backwater and fragmented economy into an integrated, inclusive and sustainable island-economy.
Photo Credits: Bobby Timonera Joemarie Escovilla Jasper Cristobal Malacaan Photo Bureau Alex Justin Abando II Layout and Cover design by: Kenny Nodalo Alex Justin Abando II
Mindanao Development Authority 4F SSS Building, Bajada, Davao City Tel. No. (+63 82) 221-1345 Telefax No. (+63 82) 221-8108 E-mail: [email protected] Website: http://www.minda.gov.ph Printed in the Philippines
MinDA