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