Briefing Paper - GPH 3-For-1 Proposal

7/27/2019 Briefing Paper - GPH 3-For-1 Proposal

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BRIEFING PAPER

The GPH 3-for-1 Proposalin the GPH-MILF Peace Negotiations

Prepared by the Secretariat, Government Peace Negotiating Panel for Talks with the

Moro Islamic Liberation Front (GPNP-MILF) [October 2011]Email: [email protected]

Republic of the PhilippinesOFFICE OF THE PRESIDENTOFFICE OF THE PRESIDENTIAL ADVISER ON THE PEACE PROCESSAgustin I Building, F. Ortigas Jr. Road (formerly Emerald Ave.)Ortigas Center, Pasig City+63 2 636-0701 to 06; http://opapp.gov.ph

!GPNP-MILF Secretariat

Briefing Paper No. 2

October 2011
http://opapp.gov.ph/http://opapp.gov.ph/http://opapp.gov.ph/http://opapp.gov.ph/http://opapp.gov.ph/http://opapp.gov.ph/mailto:[email protected]:[email protected]


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Serving Sizes

TheGPH 3-for-1 proposalcontainsthe Governments approachto the

substan=ve issues in the peace nego=a=ons with the Moro Islamic

Libera=onFront(MILF).

The documentwassubmiedduringthe22ndexploratory talks onAugust

22,2011inKualaLumpur,Malaysia.

It is intended as theGovernments star=ng oropening posi=on on the

substan=veissues.

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Background

General Framework

The proposed Agreement recognizesthat theRepublic of thePhilippines is

made up of diverse communi=es whose ci=zens can claim meaningful

autonomyand self-governance withinthe frameworkofna=onal sovereignty

andterritorialintegrity.

TheproposedAgreement recognizesthelegi=mategrievancesand claimsof

the people of Moro ancestry and origin, and the non-Moro indigenous

peoples of Mindanao and theSulu archipelago, having con=nuously lived,

occupied,andpossessedtheirhistorichomeland.

The proposed Agreement realizesthat thepar=cipa=on of allstakeholders,their convic=onof theviability of themodali=esof theproposal, andtheir

informedconsentareessen=altofindajustandlas=ngsolu=ontothearmed

conflictbetweenthePhilippineGovernment(GPH)andtheBangsamoro.

3-for-1: Three Approaches for One Problem

TheGPHproposalorthe3-for-1proposal(theProposal)consistsofthree

(3)approachesforone(1)problemseekingto:

Addresssocial andeconomicdevelopmentneedsin apar1cipa1ve

manner;

Reform legal and poli1cal environments to allow meaningful

autonomyandself-governance;and

Acknowledgethehistoricalcausesofconflicttowardsreconcilia1on.

The three approaches are to be simultaneously undertaken. One is not aprecondi=ontotheother.

TheproposedAgreement providesa mechanismfor con=nuingpartnership

betweentheGPH andtheMILF thatwillpavetheway for legalandother

reformsthat willrealize Bangsamoroself-governance anddevelopment, and

buildson priorsignedagreements betweentheGPH andthe MILFandother

keydocuments.

The ul=mate goal of the proposal is to aain a just peace in Mindanao

through a comprehensivepoli=calselement that enjoyspoli=calsupport,

establishes democra=c and effec=ve ins=tu=ons, and delivers economic

development.


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mobiliza=on of Bangsamoro leadership, and the proven benefits of an

autonomousgovernment.

Whatprocessis proposedin theAccord topavethewayforBangsamoro

self-governance?

1. Upon signing of theagreement, thePresident shall issue an Execu=veOrdercrea=ngtheBangsamoroCommission(BC).

TheBC willbe headedjointlyby theOPAPP(on behalfof theGPH)and an

MILF-appointedCo-Chair. TheBC shallbe composedof nine(9)members,

includingthechairs,withthefollowingcomposi=on:One-third(1/3)shallbe

nomineesoftheGPH,one-third(1/3)shallbefromtheMILFandone-third

(1/3) shallbe nominees mutually agreeduponby theGPH and theMILF.

Providedthat, twothirds(2/3)of thetotalmembership of theBC shallbe

Moros.EachpartyshallensurethattherearewomenandLumadmembers.

Thefunc=ons ofthe BCwill include(a)supervisingtheimplementa=onofthe

Agreement; (b) securing the legisla=ve requirements of the Agreement,

notably a newOrganic Act tocreate thenewautonomous region ofthe

Bangsamoro;and (c) coordina=ngdevelopment ini=a=vesand mechanisms

thatarepartofthepeaceprocess(e.g.BDAandBangsamoroLeadershipand

ManagementIns=tuteorBLMI).

TheBCshallbeprovidedwithP100Millionforitsopera=ons.

2. A Technical Commiee created by the BC working closely with a

Consulta=ve Civic Forum shall dra a new Organic Act and work for itspassage.

The ARMM will con=nue to perform its func=ons un=l the passage and

approvalofthenewOrganicActinaplebiscitecalledforthatpurpose.

Part Oneofthe ProposalenjoinstheMILFto partnerwithGovernmentand

otherins=tu=ons in iden=fyingand implemen=ng socio-economic priori=esanddevelopmentprojectsintheregion.

Tofacilitate thedevelopment ini=a=vesun=lsuch =methata newregional

government is in place,thereshallbe a Joint Coordina=ng Commiee on

Development(JCCD)thatwillbeco-chairedbytheGPHandtheBangsamoro

Development Agency (BDA). The JCCD is envisioned to be a coopera=ve

mechanism that carries over the formal working rela=onship between the

GPHandtheBDAtotheimmediatepost-Agreementphase.

Part One: Partnership in the Development and

Socio-Economic Reconstruction of the Region

Part Two: The Peace Accord

ThePeaceAccorddefinesGPHsposi=ononthe substan=veagendainthe

nego=a=ons:governance,powersandterritorialcoverage,naturalresources

andancestraldomain,andimplemen=ngmechanisms.

Theimplementa;onoftheAccordshallbeguidedby:

The objec=ve to establish a governance structure that will allow theexerciseofmeaningfulself-governanceandwillhaveadirectandconcrete

impact on the social and economic condi=on of inhabitants in affected

communi=es.

The understanding that the possibility for fundamental legal change is

enhanced by economic development, capability building and actual


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3.Averifiable monitoringmechanism thatincorporates exis=ngbodies, such

as the JointCoordina=ngCommieeonthe Cessa=onofHos=li=es (JCCCH),

AdHocJointAc=onGroup(AHJAG),Interna=onalMonitoringTeam(IMT)and

the Interna=onal Contact Group (ICG) will also be created. It will submit

periodicreportstotheBangsamoroCommission.

4. The Par=es shall also ac=vely support electoral reform measures andini=a=vesfortheforma=onofstrongpoli=calpar=esthat canpar=cipatein

local,regionalandna=onalelec=ons.

5.Therewillbeefforts toestablishfundingsourcessuchas,butnotlimited

to,the WorldBank Manila OfficeMul= DonorTrust Funds(MDTF)and the

JapanBangsamoroIni=a=vesfor Reconstruc=onand Development (J-BIRD),

to supporturgent costrequirementsrela=ngto the implementa=onof the

Agreement. These trust funds will be for reconstruc=on, post-conflict

rehabilita=onandreselementofinternallydisplacedpersonsandrefugees.

6.Uponthesigningoftheagreement,theMILFwillensurethatallitsarmed

elements willbe undertheBangsamoroIslamicArmedForces (BIAF)un=lthe

complete implementa=onof all agreementsrela=ng to demobiliza=on and

disarmament. TheMILFshallfullycooperatewiththeGPHindisarmingany

andallotherforcesthatrefusetobeunderitscommandandcontrol.

IstheconceptofBangsamororecognizedintheProposal?

Yes.The Accordrecognizes theBangsamoroas anethno-poli=caliden=tyof

those who are na=ves and original inhabitants of Mindanao and Sulu

archipelagobelongingtothethirteen(13)Islamicizedethnolinguis=cgroups,includingtheirspousesanddescendants,whetheroffullormixedblood.

This iden=tyis shapedbya commonhistoryin rela=ontoacolonialpast and

recognized within the context of Filipino ci=zenship and the spaces that

indigenousMorocommuni=eshaveoccupiedastheirhistorichomeland.

Whatkindofgovernment/governancestructureisproposedintheAccord?

TheAccordenvisions anew autonomousregionofthe Bangsamorowith

changesinthepoli=cal,administra=veandelectoralsystemintheregion,for

inclusionin thenew organic act, that will ensurea more representa=ve,

par=cipatory,responsiveandaccountablegovernancesystem.

Theexerciseofanyformofgovernanceinthenewautonomousregionshall

be conducted in a manner that is par=cipatory, consensus-oriented,

accountable,transparent,responsiveandresponsible,effec=veandefficient,

equitableandinclusive,andconsistentwiththeruleoflaw.

Whatwouldbe therela;onship of thenewautonomousregionwith the

Na;onalGovernment?

The new autonomous government of the Bangsamoro shall serve as the

founda=onforautonomous self-governancecognizantofthe dis=ncthistory

andiden=tyof theBangsamoro.BeinganintegralpartofthePhilippinestate,

thePresidentofthePhilippinesshallhavesupervisorypowersoverit.

How will the geographic scope of the new autonomous region be

determined?

Provinces,ci=es,municipali=es,andgeographical areassharingcommonand

dis=nc=ve historicaland cultural heritage, economic and socialstructures,

and other relevant characteris=cs within the Bangsamoro homeland that

choose tojointhe newautonomousregionshallbe included.The consentof

the provinces, ci=es, municipali=es and other geographical areas shall bemanifested through both (1) a resolu=on from the appropriate local

governmentunitsand(2)aplebiscite.


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Whatarethepowersofthenewautonomousregion?

The government of the new autonomous region of the Bangsamoro shall

enjoyexclusiveauthoritywithintheregion,exceptoverthefollowingmaers:

a. Na=onaldefense;

b. Coinageandcurrency;c. Postalservices;

d. Foreign affairs, including entering into a treaty or any other

agreementcoveredbyinterna=onallaw;

e. Administra=onof jus=ce,subjectto qualifica=ons outlinedinthe

neworganicact;

f. Customsandtariff;

g. Ci=zenship;

h. Naturaliza=on,immigra=onanddeporta=on;

i. Generalaudi=ng;

j. Mari=me,landandairtransporta=onandcommunica=ons,except

for franchisesand permits in landtransporta=onapplicableonly

withintheregion;and

k. Patents,trademarks,tradenamesandcopyright.

Whatwillhappentolocalgovernmentsunderthenewautonomousregion?

Will their powers be diminished or their roles in governance be less

substan;al?

Localgovernmentswillcon=nuetoexist,withoutdiminu=onintheirpowers.

Thegovernmentof thenewautonomousregionofthe Bangsamoroshall passappropriatemeasures tofurtherdevolve powerstolocal governments andto

realizethedevolu=onofpowersalreadyprovidedinRepublicActno.7160or

the1991LocalGovernmentCode.

Local governments are also allowed some leeway to nego=ate with the

regional government for arrangements in resource-sharing that are more

beneficialforthem.

Whatregimeofhumanrightswillapplyinthenewautonomousregion?

Rightsalready granted by the Cons=tu=on andexis=ng laws shallnot be

diminishedinthe newautonomousregion. Necessarylegal mechanisms shall

bein placeto ensuretheindividualrightsof ci=zens toequality andnon-

discrimina=onandtoaneffec=vepar=cipa=oningovernance,par=cularly:

a. Equal opportunity and non-discrimina=on on the basis of sex,

religion,ethnicity,class orcreedinpublicservice,and inallaspects

ofsocialandeconomicac=vity,ofallsegmentsofsocietyincluding

migrantcommuni=es;

b. Righttofreedomandexpressionofreligion;

c. Freedomofspeech;

d. Rightofwomentomeaningfulpoli=cal par=cipa=onandprotec=on

fromallformsofviolence;

e. Righttofreelychooseonesplaceofresidence;

f. Righttoprivacy;

g. Right to establish cultural associa=ons and protec=on of local

languages,arts,culturalandhistoricalsites,customsandtradi=ons;

h. Right tofreeexercise andenjoymentof religiousprofessionand

worship,withoutdiscrimina=onorpreference;and

i. Righttofreedomfromreligious,ethnicorsectarianharassment.

Whowillhavejurisdic;onintheexplora;on,developmentandu;liza;onof

naturalresourcesinthenewautonomousregion?

Thenewautonomousregionofthe Bangsamoroshall havejurisdic=onover

theexplora=on,developmentandu=liza=onoftheirnaturalresources.Inthecaseofall poten=alsourcesofenergy,petroleuminsitu,fossilfuel,mineral

oil and natural gas, extending to its municipal waters, co-management

schemeswiththeappropriateNa=onalGovernmentagencymaybedefined.

Management,conserva=onandprotec=onofallnaturalresources,livingand

non-living,withinfieen(15)kilometersfromthecoastlineoftheregionshall

alsobewiththegovernmentofthenewautonomousregion.


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Arrangements for sharing in jurisdic=onand revenues may be entered into

betweenthe regionalgovernmentandits componentlocal governmentunits.

Theexplora=on,developmentanduseofnaturalresourcesandwealthmust

reinforceeconomicself-sufficiencyintheregion.

How does one ensure the sustainable development and use of natural

resourcesinthenewautonomousregion?

Theneworganicactmayprovide forthe crea=onofa BangsamoroCouncilfor

SustainableDevelopment(BCSD)todrawupandmonitortheimplementa=on

ofa strategicenvironmentalplanfortheregion;exerciseoriginalandexclusive

jurisdic=on to arbitrateconflic=ng resource use within the region, based on

relevantna=onalandregionallawsandlocalordinances;or,arrangenego=ate

for,oracceptdona=ons,grants,gis,loansandotherfundingfromdomes=c

andforeignsourcestocarryouttheac=vi=esoftheCouncil,amongothers.

In addi=on, the government of the new autonomous region of the

Bangsamoro shall also enact a regional law providingfor a comprehensive

framework for sustainable development through proper conserva=on,

u=liza=onand development of natural resources.The new organic act may

further provide for minimum standards for proper conserva=on, u=liza=on

anddevelopmentofnaturalresources.

Howwouldthenewautonomousregionraiserevenuestofundtheexercise

ofitsgovernmentalfunc;ons?

ThegovernmentofthenewautonomousregionoftheBangsamoromayenact

a regional law providing for a framework to maximize its own sources ofrevenues, beyond the revenue sources and mechanisms for obtaining

revenuesalready inplace, suchas, securing financialgrants or dona=onsin

kind from local and foreign assistance agencies without having to secure

clearanceorapprovalfromtheNa=onalGovernment.However,projectswith

na=onalsecurity implica=onsshallneed clearancefrom thena=onalagency

concerned.

Thenewautonomousregionmay alsoestablishitsowntaxregime, impose,

collect, raiseand setrates and be eligible fortax incen=vesunder exis=ng

laws.

Willtherebespecialrulesforthelanduseandmanagementwithinthenew

autonomousregion?

The new autonomous region may enact regional laws par=cularly for

legisla=veandins=tu=onalmeasuresnecessarytoprocessandgrantancestral

domain claims and other rights, improving on but not deroga=ng rights

alreadyprotectedundertheIndigenousPeoplesRightsActorotherlaws.It

may enactthe necessary and moreappropriateregional lawson landuse,

landtenureandtheexerciseofpropertyrights,andagrarianreform.

IMPORTANTDATES:

February9-0,20:20thFormalTalksinMalaysia

- RenewalofthemandateoftheInterna1onalMonitoringTeam

andAdHocJointAc1onGroup;SubmissionofMILFsRevised

ComprehensiveCompact

April25-26,20:2stFormalTalksinMalaysia

- Ques1onandAnswersessionontheMILFsFebruary20

RevisedComprehensiveCompact

August4,20:Mee1ngofPresidentAquinoandMILFChairAl

HajMuradEbrahiminJapan- Exchangeofperspec1vesontheMindanaoconflict;agreement

tofasttrackthenego1a1onsleavingthedetailsofafinalpeace

agreementtothenego1a1ngpanels

August22-2320:22ndFormalTalksinMalaysia

-SubmissionbyGPHPanelofGovernments3-for-Proposal


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In all, the GPH panel is saying that most of the demands of the MILFfor self-governance can be accommodated within the present Constitution. By

passing a new Organic Act, a more functional, representative and

participatory governance institution with many of the features envisioned by

the MILF can be incorporated. Coupled with the socioeconomic component,

the means and conditions to become truly autonomous are enhanced.

The GPH offer is, therefore, principled and pragmatic. It is transformative

rather than surgical. While it understands the vision behind the MILFs

proposal for a constitutional amendment that will allow the creation of a

Bangsamoro substate whereby they themselves, will craft the BangsamoroBasic Law, the GPH is saying that this option is not viable at this time.

Still, the GPH offer is another way to get closer to that heaven in the

Bangsamoros dream.

- Panel Member Prof. Miriam Coronel-Ferrer

(A Comprehensive Package for Autonomy, PDI, 8/29/11)

Whatwillhappentoexis;ngprivatepropertyrightsandothervestedrights

inareaswithinthescopeofthenewautonomousregion?

Exis=ng private property rights, including rights over ancestral domains,

customary land laws and rights, are recognized and respected. The new

organicactmay determineequitablemeansofrestora=onforlossesarising

fromthe unjust disposi=on of territorial and proprietary rights, customarylandtenuresormarginaliza=on.Itmayalsoins=tutearbitra=onorotherjust

andculturally-sensi=vemechanismstoaddresslanddisputes.

Whatkindofprocessfornormaliza;ondoestheAccordpropose?

Developmenteffortsin communi=esand specialprograms for the livelihood

and capacity building of former combatants, the reselement of internally

displacedpersons,andthe psycho-socialhealing ofcommuni=es,especially

women,theelderlyandchildren,shallbeins=tuted.

TheAccord also acknowledgesthe need for thePar=esto explore various

mechanisms for addressing past grievances regarding land ownership,

includingdispossession,andhumanrightsviola=ons,whichmayincludethe

sengupofamemorialinhonorofthevic=msofthearmedconflict.

AretherearrangementsfordisarmamentintheAccord?

Both Par=es shall agree to undertake a comprehensive registra=on of all

weapons inthe region, anda weapons disposalandrecovery plan for the

control and recovery of high caliber firearms and ammuni=on and

unregistered firearms. The Par=es shall ensure the professional and mul=-culturalcharacterofthePhilippineNa=onalPolice-RegionalSecurityForce.

Part Three: Acknowledgement of the Historical

Roots of Conflict

PartThreeofthe Proposalacknowledges thatthe current conflictiscaused

by injus=ce resul=ng from colonial oppression, postcolonial neglect,marginaliza=on of Muslim Filipinos in Mindanao and exacerbated by

intolerance,theabusebysomena=onalleadersofweakpoli=calstructures

and some local Moro leaders in the Autonomous Region of Muslim

Mindanao.Througha peaceagreement,theGPHwill lendits dominantvoice

infostering a pluralis=caccount ofthe richhistoriesand narra=vesof the

various peoples in Mindanao. Such account may include the series of

historicalinjus=cessufferedbythe peoplesinMindanaoandshortcomingsin

governance.


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NOTES:

Documents

Briefing Paper - GPH 3-For-1 Proposal