Final Panel Report on the Proposed Bangsamoro

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PanelReportontheProposedBangsamoroAdministrativeCode1September2020CONTENTS

I. Overview

II. ConsultationMethodology

III. SummaryofConsolidatedObservationsandRecommendations

IV. Annexes

AnnexA–ListofParticipantsAnnexB–PositionsPapers/PolicyBriefs/Presentations

1. Stakeholders2. MembersofthePanelandotherMPs3. PresentationsofExpertsandAttorneyGeneral

AnnexC–MinutesoftheConsultationsAnnexD–SummariesoftheConsultationsAnnexE–TranscriptionsoftheConsultations

ABOUTTHISREPORT

ThisReportwaspreparedbythePanelfortheBangsamoroAdministrativeCode.Itpresentsasummaryofconsolidatedobservations,concernsandissuesthatemergedandsomeofthekeysuggestionsand/orrecommendationsofferedbyresourcepersonsintheseriesofconsultationsconductedbythePanel.

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I.OVERVIEW

CabinetBillNo.60,otherwiseknownastheProposedBangsamoroAdministrativeCodewasfiledlastJuly21,2020andwasreferredtotheCommitteeonRulesonJuly23,2020.ThispavedthewayforthecreationofaPanelfortheBangsamoroAdministrativeCode.ThePanelwas taskedby theCommitteeonRules to facilitateandconductpublichearings for thedraftAdministrativeCodeand submit the inputs to theCommittee. The twenty-threemembersofthe Panelwere chosen from among themembers of parliamentwho are lawyers,with longexperience in government service, ensuring that there is geographical spread withrepresentativescomingfromthefive(5)provinces,andwithsettlerandindigenouspeoples(IP)representation. Theprimary role of the panelwas to get the positions and concerns of the resourcepersonsandsubmitaconsolidatedreportonthoseissuesraisedduringthepublicconsultationsfortheconsiderationoftheCommitteeonRules,whichwillbedeliberatingtheAdministrativeCode. A series of consultations was conducted to reach government officials, experts, civilsocietyorganizations,interestedcitizensandotherstakeholdersfromalloverthecountryandtheBangsamororegioninordertoensurethatthefinaltextoftheAdministrativeCodereflectstheexperience,theneedsandaspirationsoftheBangsamoropeople. SixconsultationsontheProposedBangsamoroAdministrativeCodewereconducted,towit:

1. ConsultationwithlocalgovernmentunitsonAugust14,2020(Morning);2. ConsultationwithCabinetMembersonAugust14,2020(Afternoon);3. ConsultationwiththeExpertsinpoliticalsystemsandbureaucraciesofgovernmenton

August17,2020(Morning);4. Consultationwithsub-unitsofthedifferentBARMMministriesonAugust19,2020and

August22,2020;5. ConsultationwiththeconstituenciesofthedifferentministriesonAugust22,2020;and6. Consultationwith localexecutiveswithin theBangsamoro, representing theprovincial

LeaguesofMunicipalities;ViceMayors’ Leagues;Councilors’ Leagues; and the LigangmgaBarangays.

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II.CONSULTATIONMETHODOLOGY The Panelengaged in a consultation process on the proposed BangsamoroAdministrative Code as guided by the Rules of conducting public hearings. Participantsparticipated via Zoom, as a health safety measure during the Covid-19 pandemic. Theconsultations ran from August 14, 2020 to August 26, 2020, with sessions at the BPDAConferenceHall,BTAExecutiveLounge,andEmManorHotel. AcopyoftheproposedAdministrativeCodewassentviaemailtotheresourcepersons,through the Office of MP Atty. Raissa H. Jajurie. Resource persons were informed andencouraged to submit their position papers on or before August 27, 2020 and to e-mail thesameatbta.committeeaffairsdivision@gmail.com.Thosewhowerenotinvitedorwerenotableto participate were also encouraged to submit, position papers and/or policy briefs, asannouncedintheBangsamoroGovernmentwebsiteandFacebookpage.

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III. CONSOLIDATED OBSERVATIONS AND RECOMMENDATIONS ON THEPROPOSEDBANGSAMOROADMINISTRATIVECODE

This chapterprovidesaconsolidatedsummaryof theprimary issuesandobservationsthatemergedandsomeofthekeysuggestionsand/orrecommendationsofferedbyresourcepersons. Responses gathered during the consultations, as well as the points andrecommendations raised in the policy papers submitted, were grouped and organizedaccording to issues, and arranged as presented in the Proposed Bangsamoro AdministrativeCode.

OnIntroductoryProvisions

OBSERVATION/CONCERN/ISSUE/COMMENT SUGGESTION/RECOMMENDATIONSection2.PurposePage1Is it necessary to say that the purpose of thisAdministrative Code is to provide structural andprocedural principles and rules “during the period oftransition”?1The Administrative Code should be treated as a coredocument that can guide not only the BangsamoroTransitionAuthority(BTA),buttheregulargovernment.2

Put the phrase “shall remain effective until theregular Bangsamoro Government amends orrepeals the same” in the Repealing Clause orAmendatoryClause.3Omitthephrase“duringtheperiodoftransition”as it shows the weakness of the AdministrativeCodewhenyouputatimeline.4

Section3.DeclarationofPrinciplesandPoliciesPages1,2 Include a general provision on human rights

protectionandpromotion,towit:“Section3.DeclarationofPrinciplesandPolicy.-XXX The Bangsamoro Government, its offices,agencies, including GOCC’s shall ensure fullrespect forhumanrights. In theperformance itsduties and responsibilities, Offices, Agencies,including GOCC’s shall include human rightsprotectionandpromotionintheformulationand

1MPAtty.JoseLorenaandMPAtty.PaisalinTagoduringAugust14,2020consultation.2Ma.ChristinaValte,invitedexpertduringAugust17,2020consultation.3MPAtty.Tago4MPAtty.Lorena

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OBSERVATION/CONCERN/ISSUE/COMMENT SUGGESTION/RECOMMENDATIONimplementationofplans,programs,projectsandactivities.”5

Section3(a)Page1Whatismeantbyasymmetricalrelationship?6Asymmetrical relationship was mentioned, without aproper definition. It’s supposed to govern the differentministriesintheBangsamoroAutonomousRegion.7

Include “asymmetrical relationship” in theDefinitionofTermsunderSection4.8

Section3(b)Pages1,2Who is referred to as “indigenous peoples (IP)”? ItshouldbeincludedintheDefinitionofTerms,sothat itwillbeclearwhoaretheIPs.9

Include “Non-Moro Indigenous Peoples” in theDefiniationofTerms..10

Section4.DefinitionofTerms“SettlerCommunities”Page4

Include definition of Settler communities. “TheSettler communities should refer to the naturalborn Filipino citizen, coming from Luzon andVisayaswhoeithersettleintheBangsamorodueto the Philippine resettlement policies andprograms or voluntarily opted tomigrate in theBangsamoro.”11

OtherCommentsandRecommendationsWhat is the population of IPs? The intention of theBangsamoroTransitionCommissionwasreallyforthose,6onthemainland,andanother6intheislandprovinces.

IncludethefollowingintheDefinitionofTerms:“IPs, ICCs and NMIPs refers to a group of Non-

5PositionPaperofBangsamoroHumanRightsCommission(BHRC)signedbyAtty.AbdulnasserBadrudin,Chairperson.6MPAtty.NabilTan,andMPAtty.PaisalinTagoduringAugust14,2020consultation.7MPAtty.Tan.8MPAtty.Tan,andMPAtty.Tago.9MPRomeoSaligaduringAugust14,2020consultation.10LeticioDatuwata,ActingTimuay,KesefanagguwitTimuay(TimuayJusticeandGovernance),SouthUpi,Maguindanao,duringAugust22,2020consultation;alsosubmittedaPositionPaper. 11EdgardoRamirez,LeadConvenor,ChristinasforPeaceMovement(CfPM)duringAugust22,2020consultation;alsosubmittedPositionPaperswithendorsementsfromRev.Dr.AldrinPenamoraofthePhilippineCouncilofEvangelicalChurches,andArchbishopOrlandoQuevedo,OMI.

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OBSERVATION/CONCERN/ISSUE/COMMENT SUGGESTION/RECOMMENDATIONIt should be clarified because all provisions will clarifywhoaretheMIPAbeneficiaries.12

Moropeopleorhomogenoussocieties identifiedby self-ascription by others, who havecontinuously lived as organized community oncommunally bounded anddefined territory, andwhohave,underclaimsofownershipsincetimeimmemorial, occupied, possessed, and utilizedsuch territories; sharing common bonds oflanguage, customs, traditions, and otherdistinctiveculturaltraits,andwhohave,throughresistancetopolitical,socialandcultural inroadsof colonization, non-indigenous religions andculturesbecomehistoricallydifferentiated fromthe majority of Filipinos. Non-Moro IndigenousPeoples shall likewise include peoples who areregarded as indigenous on account of theirdecentfromthepopulationswhichinhabitedthecountry, at the time of the conquest orcolonization, or at the time of inroads non-indigenous religions and cultures, or theestablishment of present state boundaries, whoretainsomeorallof theirownsocial,economic,cultural and political institutions, but who mayhave been displaced from their own theirtradition domains or who may have resettledoutside their ancestral domains. It shall includeTeduray,Lambangian,DulanganManobo,B’laan,Erumanen ne Menuvu, Yakan, Badjao, SamaBangingi, Jama Mapon, Sama Dilaot andHigaonon within Bangsamoro AutonomousRegioninMuslimMindanao.”13

Includeadefinitionon“BangsamoroParliament”tounderscorethedichotomyofpowers;14

12MPRomeoSaligaduringAugust14,2020consultation. 13ErleighSaliling,ErumanenneMenuvu (NMIP)ofCotabatoProvince,duringAugust22,2020consultation;alsosubmittedaPositionPaper.14PositionPaperofYasminMacaumbang,Sh.L.,Member,IntegratedShariahBarofthePhilippines.

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OnBOOKIBangsamoroAutonomyandAdministration

OBSERVATION/CONCERN/ISSUE/COMMENT SUGGESTION/RECOMMENDATION

Chapter2.BangsamoroSymbolsandEmblemsSection2.BangsamoroTerritorySection2-C(1,2,3,4,5,6)Page6

Change“NorthCotabato”to“CotabatoProvince.”North Cotabato has been renamed as CotabatoProvince.15

Section9.SeatoftheBangsamoroGovernmentPage8

CreateasatelliteofficeofBARMMinCabatangan,Zamboanga City to serve the three (3) IslandProvinces.16

Chapter5.GeneralPrinciplesGoverningPublicOfficersSection20.LiabilityofSuperiorOfficersPage9Section21.LiabilityofSubordinateOfficersPage10

There must also be a specific provision on theadministrative liability of Superior andSubordinateOfficers.17

OnBOOKIIIntergovernmentalRelations


Section1.IntergovernmentalRelationsBodyPage12

15ErleighSaliling,ErumanenneMenuvu(NMIP)ofCotabatoProvince,duringAugust22,2020consultation;alsosubmittedaPositionPaper.16SuluGovernorAbdusakurTanduringAugust14,2020consultation.17ViceMayorJhulKifliSalliman,IsabelaCity,BasilanduringAugust26,2020consultation.;alsosubmittedaPositionPaper.

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Thereshouldbeaclearunderstandingofwhohassupervision over local government units in theBangsamoro. If it is delegated to theAutonomy,there should be an attempt to define theresponsibilityofsupervisionoftheChiefMinisteroverlocalgovernments.18

Section3.CouncilofLeadersPage12

There shall be an office creating the Council ofLeaders.19

The FormerOverseasBangsamoroWorkers shallbeauthorizedtonominatetheirrepresentativetothe Council of Leaders and other agencies andoffices in the Bangsamoro Government wheresectoralrepresentationismandated.20

Section3(D)Page12

The Council of Leaders shall only have 1representative for the Sultanate of Sulu and itsancestral domain (BaSulTa), and that theParliament elevates His Royal Majesty SultanMuedzul-LailTanKiramtotheCouncilofLeaderswithout the need for nomination as his positionhasbeenrecognizedbythepeopleofSulu,bythePhilippine government in 1974, and by otherinternationalentities21

18MPAtty.JoseLorenaduringAugust14,2020consultation.19Atty.AllanPanolong,BoardMember,LanaodelSurandSuluGovernorAbdusakurTanduringAugust14,2020consultation.20TahirNalg,President,FormerOverseasBangsamoroWorkers(FOBW)duringAugust22,2020consultation.21SultanMuedzul-LailTanKiram,SultanateofSuluandNorthBorneo,duringAugust22,2020consultation.

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OnBOOKIIITheBangsamoroAutonomousGovernment


TitleIBangsamoroGovernment

Section1.PowersofGovernmentPage15There is nomention in thedefinitionof terms, giving adistinctionbetweenthe“power”and“authority”,undera parliamentary setup.When you give authority to theexecutive--theMinistriesandtheCabinettheyhavefullpower even without the need of reporting to theParliament?22The character of the Bangsamoro Goverment as aparliamentary government is provided under Article 7,Section2,whichdefinesthevestingofthepowerintheParliament.23The distinction between the Power and Authority willspell the substantive difference between the previousARMMstructureandthepresentParliamentaryRegionalformofgovernment.24ThesourceofauthorityoftheGovernmentoftheDayistheParliament.25

TitleIIWali

Section15.FacilitiesPage18

22MPAtty.JoseLorena,MPAtty.MaisaraDandamun-Latiph,andMPAtty.NabilTan,duringAugust14,2020consultation.23MPAtty.Lorena24MPAtty.Tan,andMPAtty.Dandamun-Latiph.25MPAtty.Dandamun-Latiph.

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The Wali must have his honorable residence(Maligay in Maguindanao), (Turugan in Lanao),(Istana in Sulu) wherever theWali comes from.Heshallresideinthatcorrespondinghouseoftheroyalresidence(palace).26

TitleIII

BangsamoroParliamentSection4.ElectionforReservedSeatsforNon-MoroIndigenousPeoplesPage20

Is there a population requirement for IndigenousCultural Communities per municipality under the NCIPAdministrative Order No. 2, series of 2012, that wouldtantamount to a reserved seat or opportunity in theBangsamoro government, as provided in Section 8,Article7ofBOL?27

1. There must be a specific provision in themannerofelectionandselectionoftheReservedSeatsandSectoralRepresentatives.282.Change“election”to“selection”;3. Include in the enumeration of NMIPs withinBARMM the following: Erumanen ne Menuvu,Blaan, Yakan, Badjao, Sama Bangingi, JamaMapon,andSamaDilaot.29

Sec.16.RighttoInitiateLegislationPage24

26Yas,aconcernedcitizen.27EdwinUsman,President,Ungus-UngusFisherfolks,Sibutu,Tawi-Tawi,duringAugust22,2020consultation.28ViceMayorJhulKifliSalliman,IsabelaCity,BasilanduringAugust26,2020consultation.;alsosubmittedaPositionPaper.29ErleighSaliling,ErumanenneMenuvu(NMIP)ofCotabatoProvince,duringAugust22,2020consultation;alsosubmittedaPositionPaper.

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Beingprimusinterpares,therighttoinitiatelegislationisreposed to each individual Member of the Parliament(MP), and not an exclusive right of the Government ofthe Day. The provision effectively blocks the right ofotherMembers to initiate legislation. The GovernmentoftheDayhasarightandresponsibilitytodictatewhatshouldbetackledbytheParliament(agendaoftheday),but they do not have the exclusive right to initiatelegislation30This section appears to constrain Parliament byrestrictingthelegislativeinitiativeofordinaryMPsandofcommittees, as well as creating two classes of MPsinsofar as legislative initiative is concerned. It is alsounusual, as it restricts MPs’ legislative initiative, whilemandating a system of popular initiative. Furthermore,the section is also vague about the circumstances inwhich requests, questions, interpellations and motionscan be tabled. What is the difference among thesedifferentmechanisms; and as to the obligations of theChief Minister and Cabinet in response to these.Vagueness can be remedied in the Rules of Procedure,but the Code should not to impose a restraint onParliamentthatisnotcontainedintheBOL.31

TitleIV

TheBangsamoroCabinet

Sec.4.Powers,Duties,andFunctionsoftheChiefMinisterPage25This section refers to the Chief Minister’s obligationundertheBOLtoensurethattheGovernment’splatformisendorsedorotherwisebytheParliament.Itwouldbehelpful tohave this obligation set out inmoredetail inthemaintext.32

Chapter2.AdministrativeOrganizationPages27,28

30TheRoleofParliamentintheBangsamoroAdministrativeCode:AComparativeAssessmentbySirPaulSilk.APolicyBriefsubmittedbyWestminsterFoundationforDemocracy.31APolicyBriefsubmittedbyWestminsterFoundationforDemocracy32APolicyBriefsubmittedbyWestminsterFoundationforDemocracy

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Whether or not to adopt the principle of MinisterialAccountability in the Parliament? If yes, individualMinisterial Responsibility or Collective MinisterialResponsibility?

In an “Individual Ministerial Responsibility”, theMinistershallbeartheultimateresponsibilityforhis/her decisions. If s/he is deemedunfit for hisrole, s/he should resign. But his/her failure todeliver does not make his/her coalition/party(Government of the Day) responsible for suchfailure. But the BTA might consider thisdetrimentaltotheintegrityoftheGovernmentofthe Day, as it can project disunity within thecoalition/party.Thus:OptionA.“Section _____.Ministerial Accountability to theParliament. – Pursuant to the Art. VII of theBangsamoroOrganic Law, theMinisters shall beanswerable to the Parliament for the executivedecisions that are made in theministries/office/agencies. The Ministers shallcooperatewithparliamentaryinquiries, includingthe disclosure of information and publicdocuments, except for those that would inflictpublic interest and those that can only bedisclosedinjudicialcourts.Section _____. Individual MinisterialResponsibility. – The Minister shall bear theultimate responsibility for the actions of his/herministry. The majority or coalition withinparliament,whichtheMinisterisapart,shallnothold to be answerable, nor order a vote of noconfidenceshould theministry fail in theproperdischargeofitsresponsibilities.TheMinistershallanswerforhis/herownministryinparliamentaryinquiries.”33The BTA might as well look into “CollectiveMinisterialResponsibility”.Itisknownthatinthisprinciple, Ministers cannot decide for theirMinistries without its alignment with thedeliberationsmadewithintheCabinet.

33 PositionPaperoftheUnitedVoicesforPeaceNetwork,Inc.(UVPN)signedbyHamodiTiboron,CPA,Chairman.

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With this principle, the Government of the Daycan project unity, however, they are collectivelyliable for the decisions they collectivelydeliberated. In thisway, the failure of individualMinisters could call for aVoteofNoConfidencefor theentireGovernmentof theDay.However,fortheoptimists,itcouldserveasamotivatortostrengthen party discipline and well-thoughtgovernmentaldecisions.ThusOptionB.“Section ____. Ministerial Accountability to theParliament. – Pursuant to the Art. VII of theBangsamoroOrganic Law, theMinisters shall beanswerable to the Parliament for the executivedecisions that are made in theministries/office/agencies. The ministers shallcooperatewithparliamentaryinquiries, includingthe disclosure of information and publicdocuments, except for those that would inflictpublic interest, compromise cabinetconfidentiality, and those that can only bedisclosedinjudicialcourts.Section _____. Collective MinisterialResponsibility.–TheGovernmentoftheDayshallbeartheultimateresponsibilityfortheactionsoftheMinistries.Executivedecisionsshallbemadecollectively in the Cabinet, and all theMinistersshall support such decision, including its votingforthelegislature.TheMinistersshallanswerfortheministries in parliamentary inquiries. In suchcases that a vote of no confidence is passed inresponse to the failure of a ministry, theGovernment of the Day shall be responsiblecollectively.”34

34PositionPaperoftheUnitedVoicesforPeaceNetwork,Inc.(UVPN)signedbyHamodiTiboron,CPA,Chairman.

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TitleV

TheBangsamoroJusticeSystemA.Shari’ahPublicAssistanceOfficeSection13.CompositionPages33,34There is a provision that the Shari’ah Public AssistanceOfficeisalsoestablishedintheShari’ahJudicialDistricts.So,intheShari’ahJudicialDistricts,wehaveanumberofShari’ahCircuitCourts,ifthecompositionisthesame,asstated here, and in the Shari’ah Judicial Districts, therewillbeaproblemfor theShari’ahCounselorsasoneoftheirfunctions,istorepresenttheclients.So,howcould2 Shari’ah Counsellors be able to represent clientscoming from Judicial District which has many Shari’ahCircuitCourts?35

1.TheExecutiveDirectorshallbeassistedbythetwo (2) Deputy Directors, amending “2counselors.”362. Under paragraph 4. Include, one (1) DistrictOfficeineveryJudicialDistrict.EachSPAODistrictOfficeshallbeheadedbyaDistrictShari’ahPublicAssistance Officer/ Shari’ah Public AssistanceOfficer III, who shall be assisted by a Shari’ahPublic AssistanceOfficer II and a Shari’ahPublicAssistanceOfficerI.Unlessotherwiseprovidedbya regional law, the rank, compensation andprivileges of the Executive Director shall beequivalenttoaDirectorIV;theDeputyDirectortoa Director III; the District Shari’ah PublicAssistanceOfficer toaDistrictPublicAttorney inPublic Attorney’s Office (PAO), Shari’ah PublicAssistance Officer I and II to their equivalent inthePublicAttorney’sOffice,respectively.37

Section14.FunctionsPage34 Toincludethefollowingprovisions38:

Letter ____. Prepare affidavits or counter-affidavits to be filed before the prosecutionoffice, during the conduct of a preliminaryinvestigation;

35Atty.NajeebLucmanTaib,Representative,IntegratedShariahBarofthePhilippinesduringAugust22,2020consultation;alsosubmittedaPositionPaper.36Atty.Taib.37Atty.Taib.38Atty.Taib.

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Letter____.Represent indigentparty litigants inordinary civil actions, special civil actions andspecialproceedingsbefore theShari’ahCourt, ina first come-first serve basis or applying theconflictofinterestrule.

B.Shari’ahSpecialProsecutionServiceSection15.CompositionPage341. TheShariah Special Prosecution Service is created inthe Administrative Code, but the power to appoint isgiven to the national prosecution service. Is thispossible? Considering that there is a national law –Prosecution Service Act of 2010 – and that law is notamended by RA 11054 So, the BOL created the office,butthepowertoappointisincumbentuponthenationalprosecutionservice.392.What is therelationshipof thisofficetotheDOJandits prosecution service? Has this provision beendiscussedwiththeDOJoristhisamattertobebroughttotheIGR?TheSupremeCourtandtheRulesofCriminalProcedure govern who may represent the state in theprosecutionofoffensesincourt40

Section16.FunctionsPage34 InadditiontothefunctionsunderSection16,itis

suggestedthatthefollowingbeincluded:41Letter_____.Provide legalassistanceandadviceto any Bangsamoro seeking their services (Theclienteleshallnotbelimitedtoindigentparty);Letter____.Provide secondaryassistance to thepartiesrepresentedbyprivatecounselonlywhensought;

39Atty.NajeebLucmanTaib,Representative,IntegratedShariahBarofthePhilippinesduringAugust22,2020consultation;alsosubmittedaPositionPaper.40Atty.Taib. 41 PositionPaperofYasminMacaumbang,Sh.L.,Member,IntegratedShariahBarofthePhilippines.

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Letter____.ConductorientationsonPD1083andotherMuslimlaws;Letter____.Conductinformation-drivenactivitiesrelated to Shari’ah laws (Distribution ofinformation, education and communications(IECs)material).

OtherObservations:1. Creation of positions of Shari’ah Counselors in theprovincial, city and municipal level to strengthen ourknowledge,respectandadherencetoShariahlawwithinthe Bangsamoro Autonomous Region in MuslimMindanao.422. Similar to the other positions found in the proposedAdministrativeCode,eitherappointedorelectedofficialsfrom the Parliament and Cabinet, the qualifications ofSPAO Director and Shari’ah counselors should also bedefined herein for hiring and selection purposes. Thenumber and post on the mentioned immediate staffshouldbespecifiedintheproposedCode.43

3. Within the Bangsamoro region, the number ofShari’ahDistrictCourtsremainsat five(5)asprescribedunderArt.147ofPD1083.Consideringthegeographicallocation of the said District Courts and the number ofclientele needing Shari’ah justice delivery, theestablishmentofSPAOisinadequate.44

42PositionPaperofYasminMacaumbang,Sh.L.,Member,IntegratedShariahBarofthePhilippines.43PositionPaperofMacaumbang.44PositionPaperofMacaumbang.

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OtherRecommendation

Create the Office of Shari’ah Justice and IslamicAffairs that shall: promote peace and inclusivesocieties for sustainable development, takeinitiatives towards the provision of access toShari’ah justiceforall,andthebuildingeffective,efficient, transparent and accountable justicesystem.45

45PositionPaperofYasminMacaumbang,Sh.L.,Member,IntegratedShariahBarofthePhilippines.

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OnBOOKIVTheOfficeoftheChiefMinister


TitleIPowersoftheChiefMinister

Chapter4.PowertoContractLoansSection9.PowertoContractDomesticorForeignLoansPage38ThisprovisionisinconsistentwithArticleXII,Section24oftheBangsamoroOrganicLaw.46

TitleIIIFunctions

Chapter1.DifferentOfficesintheOfficeoftheChiefMinisterProperPages47–49Review the overwhelming functions andresponsibilities of the ICM, including those officesunder it. Someof these couldhavebeen lodged tosome relevantministries or created separately, liketheDevelopmentAcademyof theBangsamoro andBangsamoroHumanRightsCommission.47

B.InformationandCommunicationsOfficeSection16.InformationandCommunicationsOfficeSection16(e),and(h)Page48It is redundant with the powers and functions ofBICTOassetforthinSec.72ofthisCode48

ProposedrevisionsoftheOCM-ICOfunctions:49(e) Provide technical review and advice on ICT-relatedmatters of the Office of the ChiefMinisterProper;(h) Ensuretheavailability, integrity,security,andconfidentiality,ofICTSystems,LocalAreaNetwork(LAN)anddataoftheOfficeoftheChiefMinister.

46ViceMayorJhulKifliSalliman,IsabelaCity,BasilanduringAugust26,2020consultation.;alsosubmittedaPositionPaper.47SelahuddinHashim,ExecutiveDirector,TheMoropreneur,duringAugust22,2020consultation.48PositionPaperofSamiYsmaelU.Ebrahim,ITprofessional.49PositionPaperofEbrahim.

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50MoslemenMacarambonJr.,ITProfessionalduringAugust22,2020consultation;alsosubmittedaPositionPaper.51Macarambon,Jr.52Atty.AmerBazer,ChiefLegal,BCOBARFederationduringAugust22,2020consultation;alsosubmittedaPositionPaper.53Atty.Bazer.

OtherRecommendations:

1. Creation of Data Protection Office under the OCMProper. It will be the Data Protection Officer of theOCM,andwillensureaccountabilityintheprocessingofpersonaldata.502.Sincethe ICThasadifferent role, thereshouldbeaBangsamoroPrivacyCommission(BPC).Thatshouldbecreated.51

D.SpecialOfficeforOtherBangsamoroCommunitiesPages48,49 IncludeSections10and11ofBTABill15(BCOBARBill)

intheAdministrativeCode,towit52;

Section10.RecordofTransaction.-TheBCOBAROfficeshall keep proper accounts and records of all itstransactions and affairs, and shall exert all efforts toensure that all paymentsmade out of itsmoneys arecorrectly made and properly authorized, and thatadequatecontrolismaintainedovertheassetsof,orinthecustodyoftheBCOBAROfficeandtheexpendituresit may incur. The BCOBAR Office shall be subject toauditbytheCommissiononAudit.

Section 11. Periodic Performance Evaluation. – TheDirector General is hereby required to formulate andenforce a system of measuring and evaluatingperiodically and objectively the performance of theBCOBAR Office and submit the same annually to theChiefMinisterandtotheBARMMParliament.

Section21.OrganizationandCompositionPage49 TheappointmentofExecutiveDirectoroftheOfficeof

BCOBAR must be permanent in nature and notcoterminouswiththeappointingauthority.53

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54SelahuddinHashim,ExecutiveDirector,TheMoropreneur,duringAugust22,2020consultation55SamiraGutoc,CSOLeader,RanaoRescueTeam,LanaodelSur.56PolicyPositionoftheRegionalBoardofInvestments(RBOI),signedbyFaridaBiruar,ChiefInvestmentSpecialist.58PositionPaperofRBOI.59PositionPaperofRBOI.

Chapter2.CouncilsintheOfficeoftheChiefMinisterB.BangsamoroEconomicandDevelopmentCouncilSection27(F)Page51

It must be written as “Five private and CSO sectorrepresentatives.”Theterm“private”connotesprofit-making entities. It is best to include a CSO sectorrepresentative.”54

C.BangsamoroPeaceandOrderCouncilPages51,52How can Sultans be part of the RPOC, Peaceand Order Council? Traditional decision-making practices (consensus building) can beincorporatedintheAdministrativeCode.55

Chapter3.AttachedAgenciesandOfficesA.BangsamoroBoardofInvestmentsPages52–54GeneralConcernsRaised:56a. Considering that it is the President of thePhilippinesthatpromulgatesthelistofindustriesthat can avail of National Tax Incentives underthe National Investment Priorities Plan with theRBOI recognized under E.O.458 as the agencytasked to submit to the President theautonomous region’s list thru the national BOI,theRBOIhastoremainintactasadistinctagencyintheBARMM,asprovidedbytheBOL, inorderforinvestorstoavailofNationalTaxincentivesintheregionb.TherewereconcernsexpressedbytheexistingfirmsregisteredbytheRBOIandinvestors intheregion as towhether or not they can still enjoytheNationalTaxIncentivesthattheyavailedofor

1. Torequest forthecontinuationoftheexistenceof the RBOI as a distinct entity in the proposedAdministrativeCode,andasanindependentagencyorofficetohaveareconstitutedBoardand itsownstructure,organization,plantilla,aswellas,separateappropriations or budget consistent with the BOLprovisions regarding the RBOI and its devolutionunderE.O.458582. To continue funding theRBOI in themeantime andprovide abudget for it under the contingency fundasapprovedbytheChiefMinisterundertheBangsamoroAppropriationsAct.59

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were entitled to if theRBOI is extinguished as aboard and becomes a bureau under a mergedMinistryofTrade,InvestmentandTourismc.UnderE.O.458devolving the functionsof thenational BOI to the autonomous region, whichE.O. is specifically entrenched into law by theBOL,theRBOIwasestablishedasanofficewithaBoard governed by the national OmnibusInvestmentCodeof1987,andisrequiredbyE.O.458toconformtoBOIrulesandprocedureintheapproval of applications for registration ofinvestments in the region without prejudice tothe RBOI Board’s promulgation of its own rulesand regulations under the Omnibus InvestmentCodeof1987.

• The national BOI, through its Board ofGovernors for Mindanao, NapoleonConcepcion, recently invoked theTechnicalAssistanceprovision inE.O.458toofferitsservicestoassisttheBARMM.

• The national BOI wrote a letter to the

RBOI disapproving the inclusion ofBanking and Finance in the autonomousregion’slistofindustriessubmittedbytheRBOI to the national BOI for itsincorporation in the National InvestmentPriorities Plan to be promulgated byPresident Duterte, thereby showing thatthenational BOIcontinuestohavesomeoversight power over the RBOI,particularly as it related to the OmnibusInvestmentCodeof1987.

• TheRBOI isspecificallymentionedasone

of the Investment PromotionAgencies ofthe country with national tax incentive-giving powers in the Corporate Income

23

57Ma.ChristinaValte,invitedexpertduringAugust14,2020consultation.60EdgardoRamirez,LeadConvenor,Christians forPeaceMovement (CfPM)duringAugust22,2020consultation;alsosubmittedPositionPapers.

Tax and Incentives’ Reform Act (CITIRA)bill thathasbeenpassed in theHouseofRepresentatives and is now beingdeliberatedbytheSenate.

• The RBOI as one of the National Tax

incentive-giving bodies in the country ismandated by the Tax IncentivesManagement and Transparency Act (R.A.10708) to comply with its reportorialrequirements as to the companiesreceiving fiscal incentives in the region,particularly totheDepartmentofFinanceand the agencies under it, such as theBureauofInternalRevenue(BIR).

However, according to the experts, RBOI is bestattachedtotheMinistryofTradeInvestmentandTourism as it is consistent with the MTIT’smandateandsincethecoverageofitsservicesisregionwide.57C.OfficeforSettlerCommunitiesSection42.OfficeforSettlerCommunitiesPage55Section43.MandatePage55

EstablishmentofaBangsamoroCommissionforSettlerCommunities instead of an office. If created as aCommission,adoptthefollowingadditionalmandate:“TheCommissionwillbeacoordinative,facilitativeandpolicy-recommending body to the Interim ChiefMinister, BARMM Parliament and other BARMMinstrumentalities in translating into reality thedreams,aspirationsofthesettlercommunities.”60

24

61EdgardoRamirez,LeadConvenor,ChristiansforPeaceMovement(CfPM)duringAugust22,2020consultation;alsosubmittedPositionPapers.62Vice Mayor Jhul Kifli Salliman, Isabela City, Basilan during August 26, 2020 consultation; also submitted aPositionPaper.63MohammadAbqaryAlon,DeputyExecutiveDirector,UnitedVoicesforPeaceNetwork;aconcernedbelieverofDevelopmentAcademyoftheBangsamoro(DAB)duringAugust22,2020consultation

Section45.OrganizationandCompositionPage56 If created as the Bangsamoro Commission for Settler

Communities, Section 45 thereof shall be amended asfollows;“The Commission shall be composed of 9 Members,headedbyaChairpersonwhositsasamemberof theBARMM Cabinet. Its members are coming from thecomponent cities and provinces of BARMM. They willbe appointed on fixed term following a 6-3-yearformula. The Commission will be manned by aSecretariatheadedbyanExecutiveDirector,assistedbyProgram and Administrative Directors/Head to bedefined by the Commission En Banc, to berecommended by the CM and submitted to theParliamentforapproval.”61

Otherrecommendation

TocreateaMinistryforSettlersCommunities.Ifthere’sa MIPA, there should also be a Ministry for settlers’communities.62

F.DevelopmentAcademyoftheBangsamoroSection53.DevelopmentAcademyoftheBangsamoroPage58 1.ToincludethefollowingpowersoftheformerADA

(ARMMDevelopmentAcademy):a. establishandmaintainaRegionalTrainingCenter;b. advise the RG to promulgate orders concerning

humanresourcedevelopment;c. manageapoolofexperts,amongothers.63

2.Proposedprovision:

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Sec. 53. Development Academy of the Bangsamoro. -The Development Academy of the Bangsamoro(Academy) shall be the central human capitaldevelopment training and research arm of theBangsamoro Government for its agencies andemployees. It shall be attached to the Office of theChiefMinisterandshallhavethefollowingpowersandfunctions:

a. Provide training programs and technicalassistance services to BARMM officials andemployeeswith theend in viewofmaintaininghigh-efficient workforce, output-producingbureaucracy, and socially-responsibleinstitutions;

b. Conduct development-oriented researchprojects and policy studies that promoteinstitutional productivity and address issuesaffectinggovernmentservicedelivery;

c. Conduct knowledge exchange programs withBARMM officials and employees that promotediscussionsonthebestpracticesandstrategies,challenges, and opportunities affectinggovernmentservicedelivery;

d. Create, update, andmanage a pool of externalexperts and specialists that shall be tapped fortheinstitutionaldevelopmentneedsofagenciesoftheBangsamorogovernment;

e. Create, update, andmanage a pool of externalexperts and specialists that shall be utilized astechnical resource for training and researchservicesoftheAcademy;

f. Call upon any official, employee, or agency oftheBangsamoroGovernmentbeparticipatinginthe training and other capacity-developmentservicesoftheAcademy;

g. Call upon any official, employee, or agency ofthe Bangsamoro Government to participate ininterviews / surveys necessary for the conductofitsresearchprojectsandpolicystudies;

h. Call upon, provide feedback, and offerassistance to any agency or employee of theBangsamoro Government regarding its

26

64MohammadAbqaryAlon,DeputyExecutiveDirector,UnitedVoicesforPeaceNetwork;aconcernedbelieverofDevelopmentAcademyoftheBangsamoro(DAB)duringAugust22,2020consultation.65Alon.

performanceandservicedeliveryreflectedfromby the latest performance assessment andneedsanalysisoftheAcademy;

i. Adopt and promulgate policies and guidelinesgoverning human capital development of allagencies of the Bangsamoro governmentdesigned to strengthenworkforce capacity andinstitutionalproductivity;

j. Adopt and promulgate policies and guidelinesgoverning the design and conduct of capacity-development programs of all agencies of theBangsamoro government, with an end view ofensuring that such programs are implementedwith socio-economic development outcomes,aligned to the regional plans and interests,effectivelyachievingitsprogramobjectives;

k. Establish, and maintain training and researchcenter/s in the region with spaces that shallcater to various trainings, conferences,seminars, workshops, researches, and otherrelatedactivities.64

Section54.OrganizationalStructureSection54(2)Page58

Center of Training and Assessment (CTA) – The CTAshallofferandimplementdevelopmentservicessuchastrainingandothercapacitybuildingprograms,projects,servicesandactivitiesfortheAcademy.The underlined word above should be changed into“BangsamoroGovernmentemployees.”65

Section54(3)Page58 Center of Research and Policy Development (CRPD) -

TheCRPDshalldesign,conduct,andformulateresearchandpolicydevelopmentagendaoftheAcademy.

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It should be research and policy agenda that wouldserveitsclients.66

Section54(5)Page58 Center of KnowledgeManagement (CKM) - The CKM

shall develop and maintain technologies orcommunication channels, implement programs andactivitiestoallowtheexchangeofknowledge,practicesand strategies among the Academy’s workforcetowards improved performance and competitiveadvantage.The underlined words should be changed into“Bangsamoro’sworkforce.”67

Section54Page58 Proposedprovision:

“Sec.54.OrganizationalStructure.-TheAcademyshallbe headed by a Bangsamoro Director-General to beassistedbyfour(4)DirectorI,withsupportstaff.Itshallbecomposedofthefollowingdivisions:a. Finance and Administrative Support Services – the

FASS shall provide for the administrative andfinancial support servicesneededby theAcademy.It shall also be responsible in the management oftheAcademy’s training and research center/s. FADshallbeheadedbyaDirectorIandcomposedofanAdministrative Division, Human ResourceManagementDivision,PlanningDivision,AccountingandFinanceUnit,LogisticsandSupplyDivision,andGeneralServicesDivision;

b. CenterofTrainingandAssessment (CTA) - theCTAprovides training and other capacity-developmentservices for BARMM agencies and employees. Itshall also conduct regular assessment and feed

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backing of the institutional and training needs ofBangsamoro government agencies and employees.This center shall be headed by a Director I andcomposedofthefollowingdivisions:

1. OnboardingTrainingDivision2. Needs-ResponsiveSkillsTrainingDivision3. InternalTrainingDivision4. Executive Support and Technical Assistance

ServicesDivision5. InstitutionalAssessmentDivision

c. CenterofResearchandPolicy-Studies (CRPS) - the

CRPS shall design and conduct research projectsthat are oriented towards the improvement ofpublic service delivery as well as policy studies onproposed and existing National and Regionalpoliciesaffectingthedeliveryofpublicservices.Thiscenter shall be headed by a Director I andcomposedofthefollowingdivisions:

1. ManagementDevelopmentResearchDivision2. ProductivityDevelopmentResearchDivision3. PolicyDevelopmentDivision4. PolicyAnalysisDivision

d. CenterofKnowledgeExchange(CKE)–theCKEshall

develop and maintain technologies orcommunicationchannels, implementprogramsandactivities to allow the exchange of knowledge,practices and strategies among BARMMworkforcetowards improved performance. It shall alsoformulate policies and programs that promoteinvolvement of external experts and specialists incapacitating government employees and allowscommunities of practice to flourish in the BARMMbureaucracy. This center shall be headed by aDirectorIandcomposedofthefollowingdivisions:

1. CommunitiesofPracticeManagementDivision2. Database Management and Access Control

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Division3. MediaandPublicationsDivision.”68

Section57.OfficeoftheExecutiveDirectorPage58 Proposedprovision:

Sec. 57. Office of the Bangsamoro Director-General. -The operations and themanagement functions of theAcademy shall be vested in the BangsamoroDirector-GeneralwhoshallbeappointedbytheChiefMinister.He/she shall serve for a fixed term of six (6) yearswithout prejudice to 1 reappointment. TheBangsamoroDirector-General shall have the followingpowers,dutiesandfunctions:

a. ServeastheheadoftheAcademy;b. PresideovermeetingsoftheAcademy;c. Represent the Academy in all meetings and other

undertakings relevant to the mandates of theAcademy;

d. Managetheday-to-dayaffairsoftheAcademy;e. Sign contracts with donor institutions, partners

andotherinstitutionsrelevanttothemandatesoftheAcademy;

f. Issue orders and directives to all Academy’sofficers, consultants and employees in theexerciseoftheAcademy’smandates;

g. Promulgate policies and guidelines governinghuman capital development and conduct ofcapacity-developmentprogramsintheregion;

h. Submit regular reports and other necessarydocumentsasrequested;

i. Receive in trust legacies, gifts, donations of realpropertiesandpersonalpropertyofallkindsandadministerthesameinbehalfandforthebenefitoftheAcademy;and

j. Perform such other powers and functions asdelegatedbyacompetentauthority.69

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70MohammadAbqaryAlon,DeputyExecutiveDirector,UnitedVoicesforPeaceNetwork;aconcernedbelieverofDevelopmentAcademyoftheBangsamoro(DAB)duringAugust22,2020consultation.71Alon72Alon.

Section54(4)CenterforEducationandExtension(CEE)Page581. Sec.54.4createsaCEE(Center forEducationand Extension) offering “graduate degreeprograms”.Whileideal,itconflictswiththescopeof the Academy’s clients, the Bangsamorogovernmentemployees.Italsoraisesquestionsoffunding sources and fiscal powers. And it is alsoambiguous to open a CEE that offers graduatedegreeprogramsheadedbyaDivisionChief.702. Sec. 54 designates the Head of Office asExecutive Director II, and Bureau Heads (called“Center”) as “Division Chief” (i.e. CAO/ChiefAdministrative Officer, or any similar position).This downgrades the huge role of the Bureaus(Centers) to function like a “Division”. Divisionsusually only work together with other Divisions,do not directly engage with clients (i.e.Bangsamorogovernmentemployees, in the caseof DAB) and headed by a CAO. But unlikeDivisions,“Centers”(Bureaus)canfunctionsemi-independently, directly engage with clients, andheadedbyaDirector,whichshouldbethecase.71

Sec.57(OfficeoftheExecutiveDirector)Page593.Sec.57removesanyqualificationrequirementfor theDAB’sHeadofOffice,ascomparedto itspredecessor ADA. It might have implications inprojecting DAB as the human capital andinstitutional development expert of theBangsamoroGovernment.72

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73MohammadAbqaryAlon,DeputyExecutiveDirector,UnitedVoicesforPeaceNetwork;aconcernedbelieverofDevelopmentAcademyoftheBangsamoro(DAB)duringAugust22,2020consultation. 74Yas,aconcernedcitizen.75SelahuddinHashim,ExecutiveDirector,TheMoropreneur,duringAugust22,2020consultation.76Hashim.

DAB should be granted fiscal autonomy from theOCM.73

G.BangsamoroDarul-Ifta’Section61.OrganizationandCompositionPage59 The BARMM Darul Ifta’ shall be composed of the

BARMMMufti and a council of certifiedulama, i.e.,professionals whose expertise in Islamic study andcomparativereligion.74

H.CooperativesandSocialEnterpriseAuthoritySection66.PowersandFunctionsPage61 Toincludethefollowingprovisions:75

“Letter ____. Ensure that themarginalized, vulnerableand disabled individuals and groups are able toparticipate in the new socio-economic model forBARMM;

Letter _____. Coops and social enterprise (SE) aspathways to reintegrate, and endure the inclusion offormercombatants, surrenderees,COVIDanddisaster-affectedcommunities,amongothers.”

Section70.FunctionsanddutiesoftheSocialEnterpriseDivisionPage62 Toincludethefollowingprovision:76

“Social Enterprise Division to encourage socialprocurement within government agencies. Socialprocurementinvolvesusingprocurementprocessesandpurchasingpowertocreatepositivesocialoutcomesinadditiontothedeliveryofefficientgoods,servicesandworks. It can achieve economic empowerment by

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77MoslemenMacarambonJr.,ITprofessional,duringAugust22,2020consultation.78SamiraGutoc,CSOLeader,RanawRescueTeam,LanaodelSur.79MacarambonJr.80PositionPaperfromSamiYsmaelU.Ebrahim,ITprofessional.81PositionPaperofEbrahim.

purchasing goods and services from social benefitsuppliers and employing and training socially andeconomicallydisadvantagedpeople.”

I.BangsamoroInformationCommunicationsTechnologyOfficeSection39.BangsamoroInformationCommunicationsTechnologyPage63How can you protect and secure the centralizedinformationsystemoftheBangsamoroifthereisnocybersecurityprofessionalsintheBICTO?77

1. Give emphasis on the strong provision ofinformation, data management, specifically on digitaltransaction.782. It should also have Cyber Security Division andSecurityOperationCenter.79

Section39(f)Page63 Theprovisionshouldbereworded,asfollows:

‘’f. Facilitate the installation and configuration ofCentralizedInformationSystemstoenablerapidaccessto reliable information and reinforce governmentservicesintheBangsamoroRegion;’’80

IncludethefollowinginthefunctionsofBICTO:“Letter _____. Administer the BARMMGovernment Domain,Web Hosting Server, E-mailServices and other online platform and/orservices.”81

Section73OrganizationalStructurePage63 Proposedamendment:

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82PositionPaperfromSamiYsmaelU.Ebrahim,ITprofessional.83PositionPaperofEbrahim.

“BICTOshallbeheadedbyanExecutiveDirectorII,whoshall be appointed by the Chief Minister under co-terminus status. He/she shall be assisted by three (3)DivisionChiefs,withsupportstaff.Thedivisionsare:(1) The Information and Communications TechnologyDivision, which shall develop, install, interconnect,maintain, and protect the ICT infrastructure, systems,anddatabasesoftheBangsamoroGovernment,aswellas connect databases to those of their nationalcounterparts,asfaraspracticable;(2) The Planning and Capacity Building Division,whichshalldevelopplans,programs,andactivities relatedtothedevelopmentanduseofICT;and(3) The Administrative and Finance ManagementDivision.”82

Othersuggestions:83

All ministries, agencies, and offices should have theirown ICToffice/unit and shall use a commonname forthe office. Similar to other ministry's offices (i.e.Accounting,Legal,RecordsDivision/Office),itwouldbemore appropriate for all ICT Offices in the differentministries to use the same name to easily distinguishthe office and to allow smooth coordination acrossdifferentICToffices/units.The following are the suggested names for the ICToffices/units(chooseone):

1. Information and Communications TechnologyManagementOffice/Unit(ICTMOorICTMU)

2. Management Information System Office/Unit(MISOorMISU)

3. Information and Communications TechnologyOffice(ICTO)

OtherObservations

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84PositionPaperfromSamiYsmaelU.Ebrahim,ITprofessional.85MohammadAbqaryAlon,DeputyExecutiveDirector,UnitedVoicesforPeaceNetwork;aconcernedbelieverofDevelopmentAcademyoftheBangsamoro(DAB),duringAugust22,2020consultation. 86Anisah Hadji Ali, PhD. Lanao Youth for Peace and Development in Mindanao, during August 22, 2020consultation;submittedaPositionPaper.87PositionPaperofLeagueoftheBangsamoroOrganizations,Inc.(LBO)signedbyHashimManticayan,President.88Position Papers of Gov.Mamintal Adiong, Jr, Lanao del Sur, and Pipalawan Naga, Lead Convenor, Save LakeLanaoMovement.89PositionPaperofGov.Adiong,Jr.

BICTO is best attached to the Ministry ofTransportation andCommunication because it isconsistentwiththemandateofMOTC84.

OtherConcernsThere seem tobeno standards for selecting theappropriate position for heads of majordivisions/unitsofattachedagenciestotheOCM.

a. SectionUnitHeads,Director1,SG25b. DivisionChief,DirectorII,SG26;c. BureauDirectorII,SG26;d. BureauDivisionChief,SG2485

OtherRecommendations

1. Establish the Bangsamoro Ecological Solid WasteManagement System through the creation ofBangsamoro Solid Waste Management Commission,attached to the OCM, operated to concretizedinstitutionalizepoliciesthatwillregulateindependentlyin coordination with the MENRE-EnvironmentManagementBureau86

2.CreateaBangsamoroBantay-KorupsyonOfficeundertheOfficeoftheChiefMinister.87

3.CreateaBureaudedicatedtoaidinthepreservation,protection, exploitation, and regulation of Lake Lanaowith powers and functions akin to the Laguna LakeDevelopmentAuthority88

4. Create an office for the administration of the TorilSystem.89

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90PositionPaperofLeagueoftheBangsamoroOrganizations,Inc.(LBO)signedbyHashimManticayan,President.91PositionPaperofLBO.92 Tahir Nalg, President, Former Overseas Bangsamoro Workers (FOBW), during August 22, 2020 consultation;submittedaPositionPaper.

5. Create a BangsamoroVeteransMedical Center thatwill provide for hospitalization, medical care andtreatment to veterans and their dependents andorphans,withanannualbudgetforitsoperation.90

6. Create the Bangsamoro Halal Certification andAccreditation Office under the Office of the ChiefMinisterwith the following structure:91The Personnel,Shari’ah Legal Division, Certification and AccreditationDivision,AdministrativeandFinanceDivision,Planning,Monitoring and Evaluation Division, Research,Extension and Training Division, Product Standard,PromotionandMarketingDevelopmentDivision.Themandatesandfunctionsare:

a. Toaccreditandrecognizehalal-certifyingbodiesthatareoperatingoutsidetheBARMMbutwanttobring into the jurisdictionof the regionboththeircertifiedproductsandcertificationservicesorotherrelevantactivities.

b. TocertifyproductsinanypartsofthecountryorevenoutsidethePhilippines,asneeded.

c. Toconductregularmonitoringandevaluationofproductsandotherservices

d. To facilitate the conduct of various halalcapacityandcapabilitybuildingactivities

e. Toassist halal-certifiedestablishments for localandinternationaltrade

f. To assist in the formulation of various halalstandards

g. ContinuingHalaladvocaciesandpromotion.h. To participate in both local and international

halalevents/meetingsintheBIMP-EAGA,ASEANWorkingGrouponHalalFood,MIHAS-KLetc.

6.CreationofBangsamoroOffice forFormerOverseasBangsamoro Workers and appropriating fundstherefor.92

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OnBOOKVMinistriesandOffices

OBSERVATION/CONCERN/ISSUES/COMMENTS SUGGESTION/RECOMMENDATION

TitleI

Agriculture,FisheriesandAgrarianReformChapter1,GeneralProvisionsSection2.MandatePage74

Is there a clear-cut provision for the effectiveimplementation of the respective mandates onagriculture and agrarian reform that is parallel topertinent national laws, particularly the nationallaws and policies on agrarian reform vis-à-vis theneeded personnel to implement two differentmandateseitherunderthesameministry?93

Toinserttheunderlined:“The Ministry of Agriculture, Fisheries andAgrarian Reform and its attached agencies andbureaus shall promote sustainable Agri-fisherygrowth and development, and equitable landdistributionandtenurialsecurityforthebenefitof the landless farmers in the BangsamoroAutonomousRegion.94

Chapter4.SectoralOfficesPage78 1. Afreelegalservicetofarmerbeneficiariesis

one of theMinistry’s powers and functions(page76,Chapter1,Section3(v),andpage78,Chapter3,Section9Structure).Thus,toinclude a provision on MAFAR LegalServices.95

2. ToincludeinthestructureaDivisionrelates

toHigh-ValuedCropsProgram.96

Chapter5.ProvincialandMunicipalOfficesPage79 1. To give preference to the employees of

93Atty.PalayoganPangandaman,Jr.,ChiefLegalCounsel-Designate,MAFARLanaodelSur,duringAugust19,2020consultation.94Atty.Pangandaman,Jr.95Atty.Pangandaman,Jr.96AbdulnasserBadawi,ProvincialHead,MAFARMaguindanao,duringAugust19,2020consultation.

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formerDA-ARMMandDAR-ARMM97and totheincumbents.98

2. If they are appointed or re-appointed to a

position lower in rank in the new staffingpattern, their current and/or former salarygradesshouldberetained,followingtheCSCResolution No. 93-2240, June 22, 1993;Section13PayAdjustments.99

Section14.ProvincialOfficesPage79 To include a provision of giving the Provincial

Head Director the power and authority toappoint and recommend employees to behired.100

Section15.MAFARMunicipalOfficersPage79

OptionA:MAFAR Municipal Offices: To maintain thepositions ofMunicipal Agrarian Reform Officer(MARO) and the Municipal Agriculture Officer(MAO). After all, the MARO and MAO wouldreport to the same MAFAR Provincial Officer.101OptionB:If the above amendment is not approved,increase the Salary Grade ofMAFARMunicipalOfficerfrom20to24.102

97Al-RasidAbdul,ProvincialHead,MAFARTawi-Tawi,andAtty.PalayoganPangandaman,Jr.,ChiefLegalCounsel-Designate,MAFARLanaodelSur,duringAugust19,2020consultation.98Atty.Pangandaman,Jr.99Atty.Pangandaman,Jr.100Al-RasidAbdulandPangalianBalindong,Jr.,ProvincialHead,MAFARLanaodelSur,duringAugust19,2020consultation.101Atty.Pangandaman,Jr.,NassemSarangani,Head,MAFARMarawiCity,andAbdulnasserBadawi,ProvinicalHead,MAFARMaguindanao,duringAugust19,2020consultation.102Atty.Pangandaman,Jr.

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MAFAR Municipal Offices: To includeAgricultural Extension Workers, who will eachbe assigned to 3 barangays, 103 and to hireMAFARMunicipalHeadplusextensiontechnicalworkers for eachmandate, i.e., (1) agriculture,(2)fisheriesand(c)agrarianreform104

OtherObservations

Devolution ispartof thegovernmentphilosophyofBARMM governance. Revisit the provision onAgriculture,Title1Chapter5,Sections14,15and16,to harmonize with the pertinent provisions of thedraft Local Government Code in order to ascertainthat the LGUs shall take the lead in thedelivery ofthese basic services so that if ever ministriescontinuetomaintaindeliveryofserviceswithintheirlocalitiesitwillbetoprovidesupportiveservicesandassistancetoLGUs.However,iftheBARMMGovernmentalsocontinuestoexercisepowerovertheseservicesinthelocality,it is suggested that it must fully capacitate theprovincial andmunicipal offices by providing theseofficeswiththefollowingfunctions.On agriculture, the provincial agriculture office,among others, will have the following functions:agricultural extension and on-site research servicesand facilities which include the prevention andcontrol of plants and animal pests and diseases,livestock, markets, animal breeding stations, andartificialdesignationcenterstoprovideassistanceinthe organization of farmers and fishermencooperatives and other collective organizations, aswellas,thetransferofappropriatetechnology.

103Al-RasidAbdul,ProvincialHead,MAFARTawi-Tawi,duringAugust19,2020consultation. 104 MercyanAspi,ProvincialHead,MAFARSulu,duringAugust19,2020consultation.

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In so far as the municipal office is concerned, onagriculture,thephilosophyistocontinuetoexercisethis power and not devolve it to the municipalgovernments.105

TitleII

BasicHigherandTechnicalEducation

Chapter1.GeneralProvisionsSection1.DeclarationofPolicyPage80

There is no better way to acknowledge theimportantroleofprivateeducationintheeducationsystemintheBARMMthanitsinclusiontheBARMMAdmin Code. (Legal basis: 1987 Phil. Constitution,Article XIV, Section 4 (1), “the State recognizes thecomplementary roles of public and privateinstitutions in the educational system and shallexercisereasonablesupervisionandregulationofalleducationalinstitutions.106

To add a provision labeled as, “Letter (M).Provide assistance, in whatever reasonableforms, to non-stock and non-profit privateeducational institutions in recognition of theirpublicservices.”107

Section3.PowersandFunctionsSection3(e)Page81

Revise the phrase “supervise and regulateprivate schools…” into “provide reasonablesupervisionandregulationofprivateschools…”becausethiswillgivesomedegreeofautonomyon the part of the private education not beingfullyfundedoroperatedbythegovernment.108

Sec.8.TheBangsamoroDirector-GeneralPage83

105Atty.RandolphParcasio,invitedexpertduringAugust14,2020consultation.106Dr.FedelindaTawagon,President,DansalanCollegeFoundation,MarawiCity,duringAugust22,2020consultation.107Dr.Tawagon.108Dr.Tawagon.

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To include another Bangsamoro DirectorGeneralforPrivateEducation.109

Chapter4.DivisionOfficesSection11.FunctionsPage84 To include provision on decentralization of

powers and authority relating to hiring anddesignation of personnel to theprovincial/divisionlevel.110

Chapter5.BangsamoroEducationBoardPage85

The private education sector must berepresentedhere.111

OtherObservations:1. The regional office is doing a program creatingschools in school-less barangays, without havingplantilla items for teachers. What are parameters,guidelines,lawsincreatingschoolsinbarangays?1122. Consider the plight of our teachers by givingseparate plantilla positions and functions like ICT,registrar,planning,supply,librarian,schoolnurseorevennurseaide ineachschoolwhocanassist,helpandmonitortheteacherespeciallyonhealth.1133. To receive support services and assistance fromMAFAR and MBHTE like agricultural facilities andsets of training respectively to meet some of therequirements setbyTESDAtoestablishpartnershipwith them. The establishment of pilot madrasa

109Dr.FedelindaTawagon,President,DansalanCollegeFoundation,MarawiCity,duringAugust22,2020consultation.110Dr.MyraMangkabung,SchoolsDivisionSuperintendent,LamitanCityandBaesaromDomato-Gutoc,AssistantSchoolsDivisionSuperintendent,MarawiCityDr.FedelindaTawagon,President,DansalanCollegeFoundation,MarawiCity,duringAugust22,2020consultation.111Dr.Tawagon.112Dr.Mangkabung.113AleidaNor,SchoolsDivisionSuperintendent,LanaodelSurDistrict,duringAugust22,2020consultation.

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partnership with TESDA to sustain its operation,requires,however,setofconditions/documents.114


1. There must be a specific provision todiscontinue reshuffling or rotation of DivisionSuperintendents in districts or divisions ofanother province, to address the issues andconcerns that arose in the current mode ofrotation like the dialect-gaps and culturedifferences.115

2. There must be a specific provision for theimplementation of the National RationalizationProgramintheMBHTE.116

3. There must be a specific provision to givepreferencetoeligiblelocalresidentsinhiringtoensure that the teachers observe punctualityand are able to provide effective servicepurposes.117 Hiring and promotion should bemerit-based. There should be nodiscrimination.118

TitleIV

Environment,NaturalResourcesandEnergyChapter3.StructureoftheMinistrySection9.StructurePage89Given theexpandedpowerof the government, theMinistry’s functions and structure are quiteunderwhelming.Therearenoequivalentspecializedbureaus on Mines and Geoscience, Forestmanagement, land management, which is critical

To include a Research and DevelopmentDepartment inMENRE dedicated to study anddevelop programs/projects for renewableresources, climate change mitigation anddisasterreduction.120

114JubairaSaid,Chairperson,BasilanWomenInitiativeFoundation,Inc.duringAugust22,2020consultation.115Dr.MyraMangkabung,SchoolsDivisionSuperintendent,LamitanCity,duringAugust22,2020consultation.116Dr.MangkabungandBaesaromDomato-Gutoc,AssistantSchoolsDivisionSuperintendent,MarawiCityduringAugust22,2020consultation.117AlmaNor,SchoolsDivisionSuperintendent,MaguindanaoduringAugust22,2020consultation.118Nor.

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because therearepowers thataredevolved to theBangsamoro, even energy and environmentalmanagement.119

OtherRecommendation

To create an office under the Ministry ofEnvironment, Natural Resources and Energy(MENRE) that is mandated to study issues onancestraldomainoftheBangsamoro.121

TitleVHealth

Chapter1.GeneralProvisionsSec.1.DeclarationofPoliciesPage97IstheBARMMhealthagenda,directionandpoliciesin harmony with the Universal Health Care Law,signedbythePresidentFebruary20,2019?Thereisno mention of the UHC Law in the proposedAdministrativeCode.122

To includetheestablishmentby lawofapublichealth system and not only a general hospitalsystem.123

Sec.3(a).PowersandFunctionsPage97 To be include the provision of incentives, and

recognitionandbenefitsforhealthpersonnelintheBangsamoroHealthPlan.124

Chapter2.MinistryProperSec.5.OfficeoftheMinisterPage98

ToincludeaDeputyMinisterforBaSulta,withasatelliteofficeinZamboangaCity.125

120PipalawanNaga,LeadConvenor,SaveLakeLanaoMovement. 119Ma.ChristinaValte,invitedexpertduringAugust14,2020consultation.121PositionPaperofGov.MamintalAdiong,Jr,LanaodelSur.122Dr.AlinaderMinalang,IPHOLanaodelSur,duringAugust19,2020consultation;alsosubmittedaPositionPaper.123Dr.Minalang.124Dr.Minalang,andDr.ElizabethSamama,IPHOMaguindanao,duringAugust19,2020consultation.125Dr.SharifaJubairaIsnain,Chief,ParangDistrictHospital,Sulu,duringAugust19,2020consultation.

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Chapter4.IntegratedProvincialHealthOffices(IPHO)andCityHealthOffices(CHO)Section10.Provincial/CityHealthOfficesPage100

To include a provision giving the ProvincialHealthOfficethepowertoscreenapplicants inthe hiring process, and directly conduct theorientation of the employees, 126 as well asprocurementofgoodsandequipmentforhealthfacilities.127

Section12.RuralHealthCentersPage100If the BARMM Government continues to exercisepower over these services in the locality; it mustfully capacitate theprovincial andmunicipal officesbyprovidingMunicipalRHUsadditionalfunctions.128

1. All municipalities should have at least onewell-equipped PhilHealth-accredited RuralHealth Unit and adequate number ofBarangay Health Stations and birthingfacilities that can be fully accessed even inremote,isolatedareas;129

2. The Municipal Rural Health Units must be

empoweredsuchthattheywillhave,amongothers, the following additional functions:the implementation of programs andprojects of primary health care, maternalandchildcare,andcommunicableandnon-communicable disease, control services,access to secondary and tertiary healthservice, purchase of medicine, medicalsupplies and equipment which are neededtocarryouttheservicesasenumerated.130

Chapter6.ProgramUnitsandOfficesPages103-105

126Dr.NehamaNemertinaSingki,IPHOSuluandDr.EmelynBahjin-Jalani,Chief,PangutaranDistrictHospitalSulu,Dr.AlinaderMinalang,IPHOLanaodelSur,andDr.ElizabethSamama,IPHOMaguindanao,duringAugust19,2020consultation.127Dr.Minalang.128Atty.RandolphParcasio,invitedexpertduringAugust14,2020consultation.129Dr.Minalang.130Atty.Parcasio.

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CreateaseparateMentalHealthUnit.131

OtherObservations:1. Define the structural relationship between theMOH BARMM, the DOH Central Office and LGUs.Reorganizationofofficesoftheregionaltothelowerlevels of the structural relationship between theMOH BARMM, the DOH Central Office and LGUs.The powers and functions of the different officesandunitsintheMinistryshouldbewelldefinedwithaccountabilityandtransparencymechanisminplace.132

2.What is thedevolvedandnon-devolved setup indifferent provinces and cities? To have a uniformsystemofhealthservicedeliveryintheBARMMwithmechanisms in pace that will provide mutualsupportandcooperation.133

3.Isthereaclearstructureonthefinanceaspectforthe health service delivery support of the MOHBARMMtoBasilan?134

OtherRecommendations 1. There must be a specific provision on the

Human Resource Master Plan that willensure sustainable manpower support toexisting health facilities and those that willbe created based on the needs of theregion.135

2. There must be a specific provision for thecreationof functional localhealthboards ineveryprovince, cityandmunicipalitywhereBARMMhealthofficesandLGUcancomeup

131PositionPaperofJaneMarieDimacisil,MHPSSConsultant,HealthOrganizationforMindanao. 132Dr.AlinaderMinalang,IPHOLanaodelSurduringAugust19,2020consultation;alsosubmittedaPositionPaper.133Dr.Minalang.134PositionPaperofHarrybertHadjala,OIC,IPHOBasilan.135PositionPaperofHadjala.

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with programs and activities of mutualrespect.136

3. There must be a provision regarding theauthority of the MOH over Provincial/CityHealthOffices.137

TitleVIHumanSettlementsandDevelopment

Theword“development”intheMinistry,shouldalsoconcern the ruralareasaswell,notonlybecause itwas included in the former Administrative Code(through the Regional Housing and RuralDevelopment Authority) but because the trueessence of “development” must encompass theentireBangsamoroRegion.138

Chapter1.GeneralProvisionsSection1.DeclarationofPoliciesPage107 After the first paragraph, to include the

underlined:Itshallformulate,adopt,execute,andpromotecomprehensive, integrated and sustainableregional housing, urbanand rural developmentpolicies, plans, programs and projectsresponsivetotheneeds,aspirationsandvaluesof the people in the Bangsamoro AutonomousRegion.TheBangsamoroGovernmentshall,by lawandfor the common good, undertake, incooperation with the private sector, acontinuing program on housing and urban andruraldevelopmentwhichshallprovideadequateand decent housing facilities at affordable costand sustainable physical and socialinfrastructure and services to the residents of

136PositionPaperofHarrybertHadjala,OIC,IPHOBasilan.137Mr.MannyMuarip,ProvincialAdministrator,Basilan,duringAugust14,2020consultation. 138PositionPaperofAlMalikDiamla,Member,UnitedArchitectsofThePhilippines.

46

the Bangsamoro Autonomous Region. It shallalso promote adequate employmentopportunities to such citizens. In theimplementation of the program, theBangsamoro Government shall respect therightsofsmallpropertyownersandensurethatpoordwellersinurbanandruralareasshallnotbe evicted nor their dwelling demolished,exceptinaccordancewithlaw.In addition, the Bangsamoro Government shallencourage on-site development in theimplementation of housing programs and shallpromote the creation of new settlements anddevelopment of sustainable urban renewalprograms.139

Section3.PowersandFunctionsPages107,108

Includetheunderlined:The Ministry shall have the following powersandfunctions:a. Developandimplementcomprehensiveand

integratedhousing,humansettlements,andurban and rural economic developmentplans and programs for the Bangsamoropeople in closecoordinationwithLGUsandconsultationwithlocalstakeholders;

b. Institute mechanisms for the propermanagement of the growth anddevelopment of urban and ruralcommunitiesthroughclosecoordinationandstrong linkages between and amongrelevantministriesandoffices;

c. Coordinate and monitor urban and ruraleconomicdevelopmentundertakingsof theMinistry;

d. Conduct continuing and comprehensivestudies and research necessary for housing

139PositionPaperofAlMalikDiamla,Member,UnitedArchitectsofThePhilippines.

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andurbanandruraldevelopment.xxx

h. Implement a single regulatory system thatshall govern all activities relative to theplanning, development, production,marketing, and management of socializedhousingandurbandevelopmentprojects.140

Section3(l)Page108

The power of Parliament to assign functions(withoutthequalification“byalaw”)totheMinistryof Human Settlements and Developments seemsanomalous.141

TitleVII

IndigenousPeople’sAffairsChapters1,2and3Pages111to114 Non-Moro Indigenous Peoples word shall be

addedinallIPswordswithaslash(/)sign;thusit reads as IPs/NMIPs in all sections of TitleVII.142

Chapter1.GeneralProvisionsSec.3.PowersandFunctionsPage112

1. Include the following powers andfunctions:143(j)ResolveconflictsonboundaryandoverlapoflandownershipbetweenIPs/NMIPsandnon-IPswithintheancestraldomains/nativetitles;(k) Issue Certificates of Confirmation to

140PositionPaperofAlMalikDiamla,Member,UnitedArchitectsofThePhilippines. 141TheRoleofParliamentintheBangsamoroAdministrativeCode:AComparativeAssessmentbySirPaulSilk.APolicyBriefsubmittedbyWestminsterFoundationforDemocracy.142LeticioDatuwata,ActingTimuay,KesefanagguwitTimuay(TimuayJusticeandGovernance),SouthUpi,MaguindanaoduringAugust22,2020consultation.;alsosubmittedaPositionPaper.143Datuwata.

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IndigenousPolitical Structures (IPS)ofdifferentIPs/NMIPs and Certificates of Registration ofIndigenousPeoplesOrganizations;

(l) Issue Certificates of Confirmation ofindigenous leadership titles to IPs/NMIPschosen by IP/NMIP communities in accordancewithcustomaryprocesses;

(m) Issue Certificates of Confirmation ofCertificate of Tribal Membership issued byrecognizedauthentictriballeadersasconferredbyIP/IPcommunities;

(n) Issue Certificates of Affirmation (COA) toIndigenousPeoplesMandatoryRepresentatives(IPMR) in Local Legislative Councils and otherLocal Policy-making bodies in accordance withappropriateprocess;

(o) Affirm the Certificates of Tribal Marriageissuedbythetribalsolemnizingofficers,delayedCorticatesofLiveBirthandCertificatesofDeathissued by the Indigenous Political Structures ofdifferentIPs/NMIPs;

(p)RepresenttheIPs/NMIPsintheBangsamoroin International conferences and conventionsupon invitation by the UN Agencies orInternationalNon-GovernmentOrganizations.

2. Emphasize in the functions of MIPA therequirementof FPIC in caseofplans,programsand activities for the IPs/NMIPs communitiesprovidedbythegovernmentandNGOs144

Chapter3.StructureoftheMinistrySection10.OfficeforAncestralDomain/NativeTitlePage114

Includethefollowingprovisions:145FunctionsunderSection10.OfficeforAncestral

144LeticioDatuwata,ActingTimuay,KesefanagguwitTimuay(TimuayJusticeandGovernance),SouthUpi,MaguindanaoduringAugust22,2020consultation.;alsosubmittedaPositionPaper.145Datuwata.

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Domains/NativeTitle:

a. Responsible for the identification,delineation and recognition of ancestraldomains upon the request of IP/Non-Moro IP communities based on self-delineationprocess;

b. Assist in the preparation of AncestralDomains Sustainable Development andProtectionPlans(ADSDPPs);

c. Assist in the management of ancestraldomains in accordance with theADSDPPs aswell as the implementationoftheancestraldomainsrightoftheIPsasprovidedforinthisAct;

d. Review, determine and recommendissuanceofcertificateofpreconditiontotheMinisterforMIPA,uponthefreeandprior informed consent of the IPsconcerned, prior to the grant of anylicense, lease, or permit for theexploitation of natural resourcesaffecting the interests of IPs or theirancestraldomainsandtoassisttheIPsinprotecting the territorial integrity of allancestraldomains;

e. Perform such other functions as theMinistry may deem appropriate andnecessary.

Includethefollowingprovisions146(a) Section __. Office for Administrative andFinance – Subject to the enactment ofIndigenous Peoples/Non-Moro IndigenousPeoplesCode,theOfficeforAdministrativeandFinance,headedbyaDirector II, shallhave thefollowingfunctions:

a. Provide the MIPA with economical,efficient, and effective servicespertaining to personnel, finance,

146LeticioDatuwata,ActingTimuay,KesefanagguwitTimuay(TimuayJusticeandGovernance),SouthUpi,MaguindanaoduringAugust22,2020consultation.;alsosubmittedaPositionPaper.

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records, equipment, security, supplies,andotherrelatedservices;

b. AdministertheAncestralDomainsFund;c. Performsuchother functionsasmaybe

directedbytheMinister;

(b)Section__.OfficeforTechnicalManagementOperations – Subject to the enactment ofIndigenous Peoples/Non-Moro IndigenousPeoples Code, the Office for TechnicalOperations, headed by a Director II, shall havethefollowingfunctions:

a. Receive information on and assess theeconomic, social, and cultural needs ofIndigenous Peoples/Non-MoroIndigenous Peoples in the BangsamoroAutonomousRegion;

b. Recommend to Minister projects andactivities for the promotion of thewelfare of Indigenous Peoples/Non-Moro Indigenous Peoples related toancestral domains and native titling intheBangsamoroAutonomousRegion;

c. Undertake projects and activities incoordination with the appropriateministry,office,oragency, including theBangsamoro Satellite CoordinatingOffices;and

d. Performsuchother functionsasmaybedirectedbytheMinisterorotherproperauthorities.

Section11.SpecialPublicAssistanceandLegalAidOfficePage114

Include “Undertake resolution of conflictsinvolving boundaries and overlap of landclaims/ownership between the IPs/NMIPs andNon-IPs within the ancestral domains/fusaka

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inged/nativetitleincoordinationwiththeOfficeofAncestralDomains/NativeTitle”.147

OtherObservationIsthereaneedforarecommendationfromtheNon-MoroIPsintheselectionoftheheadofMIPA?148

OtherSuggestion

Includethefollowingprovision:Section____. Provincial Office – ProvincialOffices shall be established in Provinceswheresignificant numbers of municipalities areinhabited by IPs/NMIPs. The Provincial OfficesshallbeheadedbyaDirectorI.149

TitleVII

InteriorandLocalGovernmentChapter4.FieldOfficesSection10.ProvincialandCityOfficesPage118 1. IncludeLegalOfficerinprovincialoffices150

2. Devolve fiscal transaction to the provincial

offices, to help accelerate programs,projectsandactivitiesontheground.151

Section11.OtherFieldUnitsPage118 Includeaprovisiongivingpreferencetoeligible

local residents, or from the adjacentmunicipalitiesinthehiringofMLGOOs.152

147LeticioDatuwata,ActingTimuay,KesefanagguwitTimuay(TimuayJusticeandGovernance),SouthUpi,MaguindanaoduringAugust22,2020consultation.148RodelioAmbangan,Chairperson,MindanaoPeoplesPeaceMovementduringAugust22,2020consultation. 149Datuwata.150SohraBasir,OIC,MILGLanaodelSurduringAugust22,2020consultation.151PositionPaperofMcMilanLucman,MILGLanaodelSur.152MohammadNanding,MLGOOBuluan,MaguindanaoduringAugust22,2020consultation.;MayorAtty.DimnatangPansar,Butig,LanaodelSur;andMayorBenjaminBagul,Balindong,LanaodelSur,duringAugust26,2020consultation.

52

Chapter6.SpecialGeographicAreaDevelopmentAuthority(SGADA)Section18.BoardofDirectorsPage121Why is the Administrator of SGADA an ex-officiomemberonly in theBoardofDirectors, consideringheistheheadofthedevelopmentauthority?153

.

Section20.AreaCoordinatorsPage121

ThepositionofDMOIVintheclusterbarangaysshouldbeupgradedintoDMOV.154

OtherSuggestions

There must be a specific provision under theMILGthatrequirespriorconsultationwithLCEsin the implementation of projects, 155 andanotherprovisiononthepowersoftheLCEstosupervisetheimplementationofprojects.156

TitleX

PublicOrderandSafetyChapter1.GeneralProvisionsSection2.MandatePage131

Proposedamendment:“TheMinistryofPublicOrderandSafety(MPOS)shallbe responsible forpublicorderandsafetyintheBangsamoroAutonomousRegion.Itshallbe the lead agency in the promotionof peace,reconciliation, and unification, shall be theconflict management body of the BangsamoroGovernment, and shall have the coordinating

153MohammadKellieAntao,BoardMember,ProvinceofCotabatoandAdministratorof63BarangaysunderBARMMduringAugust22,2020consultation.154Antao. 155MayorAtty.DimnatangPansar,Butig,LanaodelSur;andMayorBenjaminBagul,Balindong,LanaodelSur,duringAugust26,2020consultation.156MayorSharifullahTanog,Pualas,LanaodelSurduringAugust26,2020consultation.

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functionwithofficesandbureausthatmaintainpublicorderandsafetyintheregion.”157

Section3.PowersandFunctionsPage131 Proposedamendment:158

“The Ministry shall have the following powersandfunctions:a. Prescribe rules, regulations, policies, and

other issuances implementing regional lawsonpublicorderandsafety;

b. Formulate and implement gender-responsive strategies for the safety andsecurity of the affected civilians in timesofwaroranyotherconflict;

c. Formulate and implement programs,projects and activities to attract localinsurgents to return to the foldsof the lawandtransformthemintovaluableresourcesoftheregion;

d. Serve as secretariat of the Regional PeaceandOrderCouncil;

e. Formulateandimplementpolicies,programsandactivitiesfortheeffectivesettlementoffamily feuds (rido) and other horizontalconflicts in the region, as well as for thepreventionof theoccurrenceor recurrenceofsuchconflicts;

f. Formulate and implement policies,programs, and activities relating toreconciliation and unification, and peacefulco-existenceofallthepeoplesintheregion;

g. Formulate and implement policies,programs,andactivitiesrelatingtoreligioustolerance,preventingandcounteringviolentextremism,socialtransformation,andothersustainablepeacebuildinginitiatives;

157PositionPaperofMinistryofPublicOrderandSafetysignedbyMinisterMPHusseinP.Muñoz.158PositionPaperofMPOS.

54

h. Formulate and implement policies andprograms for the realization of therecommendationsoftheTransitionalJusticeand Reconciliation Commission (TJRC), asmaybenecessaryandfeasible,andconductactivities for the promotion of transitionaljusticeandreconciliation;

i. Establish proper coordinating mechanismswith the Armed Forces of the Philippines,Philippine National Police, National PoliceCommission, Bureau of Jail Managementand Penology, Coast Guard, Bureau of FireProtection, and other law enforcementagenciesoroffices;

j. j.Monitorandevaluatetheprevailingpeaceand security situation in the region andsubmit reports and recommendationthereontotheOfficeoftheChiefMinister;

k. Establish a community-based conflict earlywarning/response reporting system anddevelop,establish,operate,andmaintainanintegrated regional, city, and provincialincident coordination system to enhancepublicorderandsafety;

l. Serve as the coordinating office for theimplementation of the provisions of theBangsamoro Organic Law and other peaceagreements between the NationalGovernment and the Moro Frontsconcerning the entry or integration offormer combatants who aspire to join thePhilippine National Police or the ArmedForcesofthePhilippines;

m. Conduct advocacy campaigns againstharmfulandillegalactivities;

n. Organize, accredit, capacitate, and supportlocal mediators or offices, organizations,committees, or individuals engaged inalternativedisputeresolution,includingRidosettlement;and

55

o. Perform such other functions as may beprescribed by law thereafter or as may beassignedbytheChiefMinister.

Section4.OrganizationalStructurePage131

Proposedamendment:“TheMinistryofPublicOrderandSafetyshallbecomposed of the Ministry Proper, MinistryOffices, Divisions, Services, Provincial Offices,and such other appropriate sections, and unitsasmaybenecessary.”159

Chapter2.MinistryProperSection6.PowersandFunctionsoftheMinisterPage132 Proposedamendment:160

“TheMinistershallbevestedwiththefollowingpowersandfunctions:

a. Recommend to the Chief Minister andParliament policies and programsrelatingtoPublicOrderandSafety;

b. xxxc. Serveasmemberof theRegionalPeace

andOrderCouncil;d. Approve the implementation of

Ministry’s programs, projects, andactivities;

e. xxxf. xxxg. xxxh. xxxi. xxxj. Exercise jurisdiction over all bureaus,

offices,andagenciesundertheMinistry;k. Propose to the Chief Minister the

establishment, merger, and abolition of159PositionPaperofMinistryofPublicOrderandSafetysignedbyMinisterMPHusseinP.Muñoz.160PositionPaperofMPOS.

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divisions, sections, or units in theMinistry as may be necessary for theefficientdeliveryofitsmandate;and

l. Performsuchother functionsasmaybeassignedby theChiefMinisterorasmaybeprovidedbylaw.

Section8.TheBangsamoroDirector-GeneralPage132 Proposedamendment:161

“The Bangsamoro Director-General (BDG) shallbe the highest career official of the Ministry,with appropriate eligibility. He/she must havesufficient background, education or training onmatters of public order and safety, peacebuilding,orconflictresolution.TheOfficeof theBangsamoroDirector-Generalshall perform the following powers andfunctions:a. Overseetheadministrationofprogramsand

strategicplansoftheMinistry;b. Supervisetheaffairsofthedifferentoffices,

divisions,andfieldofficesoftheMinistry;c. Implement rules and regulations

promulgated by the Minister necessary tocarry out theMinistry’s objectives, policies,functions,plans,programsandprojects;

d. Regularly update the Minister concerningtheaffairsoftheMinistry;

e. Represent the Ministry in meetings andgatherings, as may be assigned by theMinister;

f. Establish mechanisms for the continuingimprovement of the performance of theMinistry;and

g. Perform such other functions as may beauthorizedbytheMinister.

161PositionPaperofMinistryofPublicOrderandSafetysignedbyMinisterMPHusseinP.Muñoz.

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Chapter3.StructureoftheMinistryPage133 Proposed Amendment on “Chapter 3. Ministry

SupportServices”:162Section9.StructurePage133 “The Ministry Proper shall be supported by

Offices, Divisions, Services, Sections and Units,as follows: Home Affairs Office; BangsamoroReconciliation and Unification Office;Bangsamoro Peace Office; Administrative andFinanceDivision; Legal and Legislative Division;Information and Communication Division;PlanningandResearchDivision;ProvincialOfficeCoordination Division; and Internal ControlOffice”163

Section10.HomeAffairsOfficePage133 Proposedamendment:164

“TheHomeAffairsOffice(HAO)shallbeheadedbyaDirectorII,assistedbysupportstaff.Itshallbe responsible for evaluating, analyzing, andmonitoring the security issues and challengesand establish proper coordination mechanismswith law enforcement agencies in the region.Further, the HAO shall be responsible for theenhancement of the safety and security of theregionbyestablishingacommunity-basedearlywarning response system and incidentcoordination system, as well as by conductinginformation-drive relating to public order andsafety. It is divided into three (3) Sections, towit:

a. Civilian Intelligence and InvestigationSection;

b. Law Enforcement Coordination Section;162PositionPaperofMinistryofPublicOrderandSafetysignedbyMinisterMPHusseinP.Muñoz.163PositionPaperofMPOS.164PositionPaperofMPOS.

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andc. Public Order and Safety Education

Section.”

Section11.BangsamoroReconciliationandUnificationOfficePage133 Proposedamendment:165

“TheBangsamoroReconciliationandUnificationOfficeshallbeheadedbyaDirector II,assistedby support staff. It shall be the conflictmanagement body of the BangsamoroGovernment. As such, it shall be primarilyresponsible in formulating and implementingpolicies, programs, and activities for theeffective settlement of family feuds (Rido) andother horizontal conflicts; and for thestrengthening of alternative dispute resolutionin the region. It shallbecomposedof three (3)Sections,towit:

a. Data Gathering and DocumentationSection;

b. Reconciliation and Unification Section;and

c. AlternativeDisputeResolutionSection.”

Section12.BangsamoroPeaceOfficePage133 Proposedamendment:166

“TheBangsamoroPeaceOfficeshallbeheadedbyaDirectorII,assistedbysupportstaff.Itshallbe responsible for the promotion of peace,justice, religious tolerance, peaceful co-existence, and other peacebuilding activitiestowards normalization as an effectivemeasurein ensuring lasting peace and security in theBangsamoro Autonomous Region. Further, itshall endeavor to attract local insurgents toreturn to the folds of the law and make the

165PositionPaperofMinistryofPublicOrderandSafetysignedbyMinisterMPHusseinP.Muñoz. 166PositionPaperofMPOS.

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necessary programs to transform them into avaluable resource of the region. It shall becomposedoffour(4)sections,towit:

a. CapacityDevelopmentSection;b. PeaceAdvocacySection;andc. SpecialProgramsSection”


1.Toincludenewprovisions:167Section13.AdministrativeandFinanceDivision;Section14.LegalandLegislativeDivision;Section 15. Information and CommunicationDivision;Section16.PlanningandResearchDivision;Section 17. Provincial Offices CoordinatingDivision;Section18.InternalControlOffice;2.Toincludenewchapters:Chapter4,ProvincialOffices.168Section19.OrganizationalStructure;Section20.OfficialStations;Section21.PowersandFunctions;Section22.OfficersoftheProvincialOffice;Section23.MPOS-ProvincialDirector;Section24.AdministrativeandFinanceOfficer;Section25.TrainingandAdvocacyOfficer;Section 26. Alternative Dispute ResolutionOfficer;Section27.PublicOrderandSafetyOfficer;Section 28. District Public Order and SafetyOfficers;

Thereshouldbefieldofficesuptothemunicipallevel.169

167PositionPaperofMinistryofPublicOrderandSafetysignedbyMinisterMPHusseinP.Muñoz. 168PositionPaperofMPOS.169Ret. Col. Abdulbasher D. Bongcarawan, Provincial Coordinator,MPOS Lanao del Sur, during August 22, 2020consultation.

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CreationofBangsamoroVeteransAffairsOfficeundertheMinistryofPublicSafetyandSecurity(MPOS),thefunctionofwhicharetoAdministerthe Veterans pension and other needs andbenefits and promotion of policies andmanagement of services for veterans’ affairsandwelfare.170

TitleXI

PublicWorksChapter4.DistrictOfficesSection10.DistrictOfficePage136

IncludeaLegalOfficeroraLegalAssistant,sincewearedealingwithcontracts.171

OtherObservationNo equivalent bureaus that will take responsibilityfor formulating specific policies and guidelinesrelated to standards, design, maintenanceconstructionandequipmentservices.172

TitleXII

ScienceandTechnologyChapter1.GeneralProvisionsSection3.PowersandFunctionsPage138 Include: “Provide technical and financial

assistance to Civil Society Organizationsincluding Non-Governmental Organization,People’s Organization, and the IndigenousPeople’sOrganization inpromotingacultureof

170PositionPaperofLeagueoftheBangsamoroOrganizations,Inc.(LBO)signedbyHashimManticayan,President. 171Engr.MaldaminDecampong,DistrictEngineer,MPWLanaodelSurDistrict2,duringAugust19,2020consultation172Ma.ChristinaValte,invitedexpertduringAugust14,2020consultation.

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good governance through the people’sparticipation.”173

Chapter4ProvincialScienceandTechnologyCenterSections10,11and12Pages140,141

Amend “Provincial Science and TechnologyCenters” into “Provincial Science andTechnologyOffice.”174

Chapter4,Section10ProvincialCentersPage140Provincial Centers. Is (b) Cotabato City,within theareaofjurisdictionofMOSTBARMM?175

Add a provision providing structure in themunicipallevel.176

Section11.FunctionsPage140ThePSTDoftheformerARMMwasSG25,nowwiththe BARMM, the Senior Science and TechnologySpecialist(SSTS)asaprovincialheadwithSG19.177

Toamendtheunderlined:“EachoftheProvincialCentersshallbeheadedby a Senior Science and Technology Specialistand shall be assisted by other support staff,”into: Provincial Science and TechnologyDirectors (PSTD) with SG 25 (Director I), andshallbeassistedbySupervisingSRS,SeniorSRS,SRS II, Administrative Officer III, SRS 1 andAdministrativeAideIV.178

OtherObservation

173PositionPaperofLeagueoftheBangsamoroOrganizations,Inc.(LBO)signedbyHashimManticayan,President.174Engr.AlinaderA.Sarangani,ProvincialHead,MOSTLanaodelSur,duringAugust19,2020consultation.175JandatuSalik,ProvincialHead,MOSTMaguindanao,duringAugust19,2020consultation.176Engr.Sarangani.177ShirmaSabal-Mudjahiron,ProvincialHead,MOSTTawi-TawiandEngr.SaranganiduringAugust19,2020consultation.178MudjahironandEngr.Sarangani.

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MOSTisanotherveryimportantministrythathasnospecific bureaus identified in the Code that willenabletheMinistrytocarryoutitsmandate.179

TitleXIII

SocialServicesandDevelopmentChapter4.Provincial/City/MunicipalitySocialWelfareOfficesSection12EstablishmentandOperationsofWelfareFacilitiesPage146

Theinclusionoforphanagecenters.Thiswillbethe opportunity that the BARMM help theBangsamoro orphans, especially those affectedbytheconflict.180

Chapter6.SocialWelfareAgenciesandServicesSection19.AccreditationandOperationofSocialWelfareAgenciesPage147

Aside from granting of permit to operate andaccreditation, the BARMM government shallprovide financial support to these governmentor private institutions to ensure the betterwelfare of the welfare agencies specially theorphanagecenters.181

Section21.FosterHomesPage148 There shall be established orphanage centers

intended for the sons and daughters of theBangsamoro martyrs aside from the FosterHomes, and these orphanages should besubsidized.182

OtherObservationsDevolution ispartof thegovernmentphilosophyofBARMM governance. The provisions 10, 11, 12, 13and 14 are to be harmonized with the pertinent

179Ma.ChristinaValte,invitedexpertduringAugust14,2020consultation.180PositionPaperofLeagueoftheBangsamoroOrganizations,Inc.(LBO)signedbyHashimManticayan,President. 181PositionPaperofLBO.182PositionPaperofLBO.

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provisions of the draft Local Government Code inordertoascertainthattheLGUsshall takethe leadin the delivery of these basic services. However, Ifthe BARMM Government continues to exercisepowerover these services in the locality aswrittenin the Administrative Code, itmust fully capacitatethe provincial and municipal offices by providingthese following functions: The municipal officewhichisthefrontlinerofhighlydemandingfunctionsandservicesshouldalsobetaskedtoincludeamongtheirservices,programsandprojectsonchild,youthandspecialchildrenwelfare, familyandcommunitywelfare,womenwelfare,welfareof theelderlyanddisabled persons, community-based andrehabilitation programs for the underprivileged,street children, delinquent children, and victims oftrafficking, including livelihood and other projects,nutritionandfamilyplanning.183OtherSuggestion

In terms of women and children, the LocalGovernment Code should mandate devolutionof powers to the LGUs so that there will beresources therein, and there will be a stronganchor for the operationalization of theimplementationofthesespaces,servicesunderMSSD184

TitleXIV

Trade,InvestmentsandTourismChapter3.StructureoftheMinistryA.BangsamoroBoardofInvestmentsPages52to541. WhatisthelegalbasisofattachingBBOItotheOffice

of the Chief Minister, and also the formerCooperative Development Authority is separatingfromMTIT?185

183Atty.RandolphParcasio,invitedexpertduringAugust14,2020consultation.184ParamisuliAming,ProjectDirector,AMBUH-INAH,Tawi-Tawi,duringAugust22,2020consultation.185MPAdzfarUsman,andMTITMinisterAbuAmriTaddik,duringAugust14,2020consultation.

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2. WhatisreallytheintentoftheBOLonintegratingall

these powers under one Ministry, MTIT? Now whyarewe separating the authority of theBOI, and theformer CDA from MTIT?186There should be specificand direct stipulations on their respective functions(BBOI now under OCM, and Bureau of Investmentsunder the MTIT).187 It is more sound to place theCooperative and Social Enterprise Office under theMTIT, considering the harmony on socio-economicdevelopment.188

Chapter5.FieldOfficesSection19.ProvincialOfficesPage156 IncludeMunicipalOfficesinthestructure.189Section20.PowersandFunctionsPage156 Give the Provincial Health Office the power to

screen applicats in the hiring and directlyconducttheorientationoftheemployees.190

Chapter7.HalalAccreditationBoardSections31,32,33and34Pages161-163

Changethe“HalalAccreditationBoard(HAB)”to“BangsamoroHalalBoard(BHB)”,amendingthewhole of Chapter 7, Sections 31 to 34 to thateffect.191

Section33.CompositionoftheHABPage162 Include the following: The Bangsamoro Halal

Board shall also include: (1) The Mufti of theBangsamoroDarulIftaasViceChairperson;andThe Minister of Finance, Budget andManagement.192

186MPAdzfarUsman,duringAugust14,2020consultation.187MTITMinisterAbuAmriTaddik,duringAugust14,2020consultation. 188MTITMinisterTaddik189MohammadAquilMamainte,ProvincialDirector,MTITLanaodelSur,duringAugust19,2020consultation.190Mamainte.191PositionPaperofAlMalikDiamla,Member,UnitedArchitectsofThePhilippines.192PositionPaperofDiamla.

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Chapter8.BangsamoroTradeCouncilSection36.FunctionsoftheBBTCSection36(e)Why does the Bangsamoro Barter Trade Councilsubmit recommendations to the Parliament, andwhatistheconsequenceofdoingso?193

TitleXV

TransportationandCommunicationChapter4.SectoralOfficesSection21.CAABOrganizationalStructurePage171

Establish a provincial office, especiallyBaSulTa.194


1.OptionA:195Maybe MOTC can be expanded to Ministry ofTransportation,TelecommunicationsandICT;OptionB:196Create another Ministry of ICT. This will savemoney by having Standard Systems SoftwareandHardwareusedlikeHRSystem,Payrolltoallthe Ministries, Offices and Agencies. This willalso prevent corruption during procurement,biddingofhardwareandsoftware;andUndertheMinistryofICTasanattachedagency,is the Cyber Crime Investigation Office. ThisincludestheDigitalForensicLaboratory,andtheBangsamoro Computer Emergency ResponseTeam(CERT).

193TheRoleofParliamentintheBangsamoroAdministrativeCode:AComparativeAssessmentbySirPaulSilk.APolicyBriefsubmittedbyWestminsterFoundationforDemocracy. 194CarmencitaSalik,AirportManager,CAAP-BARMM,duringAugust19,2020consultation.195MoslemenMacarambonJr,ITProfessionalduringAugust22,2020consultation.;alsosubmittedaPositionPaper.196Macarambon,Jr.

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TitleXVI

BangsamoroCommissionsGeneralobservationonTitleXVIWhydoes theBangsamoroSportsCommissionhaveits budget approved by the Parliament while theotherCommissionsmentioned in Title XVI (Women;Youth;CulturalHeritage)donot?Whymust the Cultural Heritage Commission reportto the Parliament while the others have no suchobligation?197

There should be a rational basis for theoccasional specific, but apparently arbitrary,rolesconferredonParliamentbytheCode198

Chapter4.BangsamoroCommissiononthePreservationofCulturalHeritageSection11.BangsamoroCommissiononthePreservationofCulturalHeritagePage182

Amend the composition, from “2commissioners,”to“5commissioners”.199

Section12.MandatePage182 ProposedAmendment:

“Pursuant the Bangsamoro Organic Laws, theBCPCH shall have the primary responsibility towritethehistoryoftheBangsamoropeopleandestablish and sustain the cultural institutions,programs, and projects in the BangsamoroAutonomous Region. The Commission shallcoordinate and work closely with the NationalCommission for Culture and the Arts, NationalHistorical Commission of the Philippines, andother concerned cultural agencies for thepreservation of cultural heritage shall establishlibraries and museums, declare and restorehistorical shrines and cultural sites to preserve

197 WestminsterPolicyBrief. 198TheRoleofParliamentintheBangsamoroAdministrativeCode:AComparativeAssessmentbySirPaulSilk.APolicyBriefsubmittedbyWestminsterFoundationforDemocracy.199PositionPaperoftheBureauofCulturalHeritage(BCH)signedbyArdanSali,ExecutiveDirector.

67

the Bangsamoro heritage and posterity. TheCommission shall ensure the inclusion ofPhilippine history, culture and heritage in theestablishment of museums and similarinstitutions, programs, and projects to fosterunityamongtheFilipinos.”200

Proposednewprovisions:201Sec.14.Thepowersof theBCPCH-Tocarryoutits mandate, the Commission shall exercise thefollowingpowers:

a. Identify, declare, validate, and monitorhistorical shrines and sites, including theinstitution or markers and landmarks inthe Bangsamoro Region in closecoordination with the relevant nationalagenciesconcerned;

b. Toappointandpromotethepersonnelofthe Commission, subject to existing CivilServicerulesandregulations;

c. Provideleadershipintheformulationandinitiation of regional policies and plans,and setting of priorities and direction ofculture,arts,andheritagepromotionanddevelopmentprogramsandactivities;

d. Establish consultativemechanismswhichshall provide a forum for continuingdialogue between the BangsamoroGovernment and the cultural groups ontheproperplanningandevaluationofthepolicies,programs,andprojectsaffectingthe culture, arts, and heritage of theBangsamoro people, convening for thispurpose representative of all culturalgroups and institutions, including theculturalcooperatives;

e. Issue rules and regulations in pursuanceoftheprovisionsofthisAct;

f. Accredit, register, and oversee culturalmapping initiatives and registry of

200PositionPaperoftheBureauofCulturalHeritage(BCH)signedbyArdanSali,ExecutiveDirector.201PositionPaperofBCH.

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culturalproperty;g. Promulgateitsownrulesandprocedures;h. Tosuspend,dismissorotherwisedisciple

foracauseofficialsandemployeesoftheCommission, except officials andemployeesfromSalaryGrade25andup;

i. Enterintocontracts;j. Acquire,possess,anddisposeofrealand

personal properties in furtherance of itsmandates;

k. Solicit and accept donations, gifts,requests, andgrants in cashand inkind,or enter into agreements with anylegitimate entity, local or foreign,consistentwithitsmandate

l. Toperformanyandallotheractsincidenttoorrequiredbyvirtueofitscreation.

Section14.FunctionsoftheBCPCHPage183 Proposedamendment:202

“To conserve and promote the Bangsamorohistorical and cultural heritage, theBCPCH shallhavethefollowingfunctions:

a. Lead the monitoring and systematizeretrieval and conversation of artifacts ofBangsamoro culture and history and allBangsamoro cultural treasures from allover the Bangsamoro AutonomousRegionandthePhilippinearchipelago;

b. Initiate and support the study,recognition and preservation ofendangered human as to theconservationanddevelopmentofartistic,linguistic and occupational skills that arethreatenedwithextinction;

c. Lead the promotion, establishment, andpreservation of cultural and historicalmonuments,markers,namesandsites;

202PositionPaperoftheBureauofCulturalHeritage(BCH)signedbyArdanSali,ExecutiveDirector.

69

d. Spearhead the establishment and/ormaintenance all over the BangsamoroAutonomous Region of museums,libraries, archive, private or public, asrepositories, respectively of all culturalartifacts and artistic creation, printedworks, archival records and all othermaterials indispensable to the studyandevaluation of Bangsamoro culture andhistory;

e. Encouragetheprivatesectortoestablishand maintain private museums andlibraries;

f. Lead the engagement and support forscholarly research into anddocumentation of Bangamoro culturaltraditions, arts and crafts, as well assignificant cultural movements,achievements, and personalities,especially in the literary, visual andperforming arts; and in mass media, aswell as various aspects of Bangsamoroculture;

g. Lead and support the writing of historyfromtheBangsamoroperspective;and

h. Ensure the standard of excellence arepursued in programs and activitiesimplementing policies herein stated, itshall encourage and support continuingdiscussionanddebate,throughsymposia,workshops, publication, etc., On thehighest norms available in thematrix ofBangsamoroculture.”

Section15.CompositionandTermsofOfficePage184 Proposedamendment:203

“TheCommissionenbancshallbecomposedofa Chairperson and five (5) Commissionersrepresentativethemajorpoliticalsubdivisionsof


70

theBangsamoroAutonomousRegion,namely:a. Maguindanao, including Cotabato City

and the63barangaysofNorthCotabatothatjoinedtheBangsamoroAutonomousRegion;

b. LanaodelSur,includingMarawiCity;c. Sulu;d. Basilan,includingLamitanCity;e. Tawi-Tawi

There shall be two ex-officio Commissionerscoming fromtheNon-Moro Indigenouspeoplesand Settler Communities. For this purpose, therespective heads of the Ministry of Indigenouspeople’s Affairs and Office for SettlerCommunities shall designate the ex-officioCommissioner from their offices. The ex-officioCommissioners shall have the right to vote. Atleast two (2) of the Commissioners shall bewomen.“

Proposednewprovisions:204Sec.17.Appointments–TheChairpersonandtheCommissioners shall be appointed by the ChiefMinister.The Chairperson, as amatter of policy, shall berotated every term in accordance withrepresentations in the major geographicalsubdivisions.ForthefirstsetofappointeestothepositionsofChairperson and Commissioners, the ChiefMinister shall select from the list of nomineessubmitted by cultural groups, culturalorganizations or cultural-serving organizationsoperating within the BARMM and which havebeen inexistence forat least three (3) yearsasoftheapprovalofthisAct.


71

For succeeding appointees, the Chief Ministershallselectfromalistcontainingbetweenthree(3) and five (5) names for each position,submitted by cultural groups, culturalorganizationsorcultural-servingorganizationsintheir respective areas asduly accreditedby theCommission.Nominating cultural groups, culturalorganizations or cultural-serving organizationsshouldhavebeen inexistenceforat leastthree(3) years at the time of the submission of thenomination.

Proposednewprovision:205Section18.TermsofOfficeandCompensation–Of those first appointed under this Act, theChairpersonshallholdoffice fora fixed termoffive(5)years,two(2)membersforfixedtermsoffour (4)years,and three (3)members for three(3)yearsfixedterm.Thereafter,allsucceedingappointeesshallservefor a term of three (3) years fixed term. Theymaybere-appointedforanotherterm,providedthat they shall not exceed the age limit at thetime of their appointment. In no case shall anymemberbeappointed,re-appointed,morethanonce, nor designated in a temporary or actingcapacity.ThetermoftheChairpersonandmembersoftheCommission shall commence on the dayimmediatelysucceedingtheendofthepreviousterm,regardlessofthedateofappointment.Appointees toanyvacancyoccurringduring theterm shall serve only for the remaining portionofsaidterm.


72

TheChairpersonandtheregularCommissionersshall receive compensation equivalent to SalaryGrade28and27respectively.

Section16.QualificationsoftheChairpersonandtheCommissionersPage184 Proposedamendment:206

“Section 19. Qualifications – The Chairpersonand the Commissioners, including the regularand ex-officio Commissioners shall have thefollowingqualifications:

a. AcitizenofthePhilippines;b. AregisteredvoteroftheBARMMand,in

the case of the Chairperson and theregular Commissioners, a registeredvoter of the major political subdivisionhe/sherepresents;

c. AresidentoftheBARMMforaperiodoftwo(2)years;

d. Holders of a Master’s degree and/ orDoctoraldegree;

e. Ofgoodmoralcharacter;f. Must have at least three (3) years of

exposure to cultural affairs, history,projectandprogrammanagement;and

g. Musthaveatleastfouryears(4)yearsofmanagerialexperience;

h. Atleast35yearsofageatthetimeofhis/herappointment.

Proposednewprovision:207Section 20. Powers of the Chairperson – TheChairperson:

a. Shall convene and preside over regularandspecialsessionsandmeetingsoftheCommission and divisions it mayconstitute;

206PositionPaperoftheBureauofCulturalHeritage(BCH)signedbyArdanSali,ExecutiveDirector. 207PositionPaperofBCH.

73

b. Represents the Commission in all itsbusiness transactions and signs, on itsbehalf, contracts, and obligations, andsuch other documents pursuant to aresolutionoftheCommissionproper;

c. ActsasafocalpointofcommunicationoftheCommission;

d. Appoint the employees and otherpersonneloftheCommission;

e. Approves or disapproves the transfer ordetail of employees subject to theprovisions of existing laws andregulations;and

f. Performs such other powers as may bevestedbytheCommissionproper.

Section17.TheExecutiveDirector,FunctionsTermofOfficePage184 Proposedamendment:208

“Section21.TheExecutiveDirectorandDirectors- There shall be an Executive Director, DirectorforAdministrationandFinance,andDirectorforOperationsappointedbytheChiefMinister,whoshall be responsible for implementing thepolicies, rules, regulations and directives of theBCPCHandshalldirectandsupervise itsday-to-dayoperations.Forthispurpose,theExecutiveDirectorshallbesupportedbyone(1)DirectorforAdministrationandFinanceandone(1)DirectorforOperations.xxxTheDirectorforAdministrationandFinanceandDirectorofOperationsshallbeappointedbytheChief Minister with regular plantillaappointment.The Executive Director and Director for


74

Administration and Finance and Director ofOperations shall receive compensationequivalent to salary grade 26 and 25respectively.

Section18.QualificationsofExecutiveDirectorPage185 Proposedamendment:209:

“Section 23. Qualifications of the ExecutiveDirector – No person shall be appointed asExecutiveDirectoroftheCommissionunless:

a. AcitizenofthePhilippines;b. A resident of the Bangsamoro

AutonomousRegion;c. Atleastthirty(30)yearsofage;d. Ofgoodmoralcharacter;e. WithMaster’sdegree;f. Must have at least three (3) years of

relevantmanagerialexperience inanyofthe following fields: law, economics,public administration, commerce,management,socialservices,orfinance.”

Proposednewprovisions:210Section24.TheCommissionSecretariat;Section 25. Duties and Responsibilities of theSecretariat;Section 26. Organizational Structure – TheCommissionshallbecomposedof the followingDivisions:

1. TechnicalServicesBureauheadedbytheDirectorofOperationswhichshallconsistofthefollowingdivisions:

a. PolicyandPlanningDivision;b. MuseumsManagementDivision;c. HistoryandArchivesDivision;d. CultureandArtsDivision;

209PositionPaperoftheBureauofCulturalHeritage(BCH)signedbyArdanSali,ExecutiveDirector. 210PositionPaperofBCH.

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2. Administrative and Finance Bureauheaded by the Director for Admin andFinance which shall consist of thefollowingdivisions:

a. AdministrativeDivisionb. FinanceDivision;

Section 27.Offices of the Commissioner – EachCommissioner shall head an office in theprovincehe/sherepresents;Section28.PowersandFunctionsof theOfficesoftheCommissioner;Section29.FiscalAutonomy;Section30.Appropriation.

TitleXVII

OtherCommissionsandBodiesObservation:Dowe need to legislate to translate it into amuchclearer definition, and the mechanics on how topreserve the independence of these bodies(Bangsamoro Human Rights Commission andBangsamoroAuditingBody)?211

TitleXVIII

AdministrativeServicesChapter1.HumanResourceDevelopmentandManagementSection12.PerformanceManagementSystemPage194 Create a Program and Project Control Board in

everyministry/office.212.Toincludethefollowingsections213:

211MPZiaur-RahmanAdiongduringAugust14,2020consultation.212PositionPaperoftheUnitedVoicesforPeaceNetwork,Inc.(UVPN)signedbyHamodiTiboron,CPA,ChairmanandMohammadAbqaryAlon,DeputyExecutiveDirector,UVPN;aconcernedbelieverofDevelopmentAcademyoftheBangsamoroduringAugust22,2020consultation.213PositionPaperoftheUnitedVoicesforPeaceNetwork,Inc.(UVPN)signedbyHamodiTiboron,CPA,Chairman.

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1. Sec. (__). Participatory Program

Management Policy. It is the policy of theBangsamoro Government ensure co-ownership and needs, responsiveness ofgovernment programs and projects to itsbeneficiaries through an institutionalizedgovernment-stakeholder feedbackingmechanism.

2. Sec. (__). Creation of Program and Project

Control Board. A Program and ProjectControl Board (PPCB) shall be created ineach ministry/office/agency and theirprovincial offices. It shall be the jointgovernment stakeholder decision-makingbody of theministries/offices/ agencies forits programs and projects The PPCB shallhavethefollowingfunctions:a. Deliberate programmatic solutions to

the latest data, trend, situation, andclamorfromtheground;

b. Design, plan, and allocate funds onministry/office/agency programs andprojects;

c. Monitorandevaluate theeffectivenessof program and project in terms ofimplementation, impact, and fundexecution;

d. Ensure the ministry/office/agency’scompliancewithanyguidelinessetforacentralized project managementinformation system that may bedevelopedintheRegion.

AddanotherchapterforAdministrativeReforms,withthefollowingsections.2141. Sec. (__). Administrative Efficiency Policy.

The Bangsamoro Government shallinstitutionalize a collaborative mechanism

214 PositionPaperoftheUVPN.

77

amongkeyoversightagenciesintheRegionthat will ensure an efficient administrativesystemsandpoliciesinthebureaucracy.

2. Sec. (__). Creation of Bangsamoro Inter-AgencyTaskForce(BIATF)onAdministrativeReforms. An Inter-Agency Task Force shallbecreatedtomaintainapolicyenvironmentof administrative efficiency in the Region.The Task Force shall be chaired by theMinistry of Finance, and Budget andManagement(MFBM)andco-chairedbytheOffice of the Senior Minister (OSM), withthe following as members: a. BangsamoroInternal Auditing Body (BIAB); b.Bangsamoro Planning and DevelopmentAuthority (BPDA); and c. DevelopmentAcademy of the Bangsamoro (DAB);RepresentativestotheTaskForceshallhavea rank not lower than the assistant/deputyof theministry/head of the office / agencyanddulyauthorizedbytheminister/headoftheoffice/agencyconcerned.

3. Sec. (__). Functions. The BIATF on

Administrative Reforms shall have thefollowingfunctions:

a. Review, deliberate, develop, modify,

harmonize,unify,andsimplifyneworexisting administrative systems,policies, procedures, and guidelineswith an end view of addressingsystemicadministrativedefects in theRegion; b. Participate in thedevelopment, implementingrulesandregulations of any legislation enactedby the Bangsamoro Parliament thatmay involve disruption of establishedadministrative systems, policies, andprocedures;

b. Harmonize Regional administrative

78

systems, policies, procedures, andguidelines with that of the NationalGovernment;

c. Manage changes in cases ofbureaucratic reorganization, resizing,andrepurposing;and

d. Perform such other functions andpowersasmaybenecessary.

4.Sec.(__).SecretariatandTechnicalServices.The Development Academy of theBangsamoro (DAB) shall serve as theSecretariat of the Task Force as well as itstechnicalresourceinstitution.

5. Sec. (__). Involvement of National

Government Agencies in the BARMM. TheTask Force may invite the Civil ServiceCommission (CSC) forBARMM,CommissiononAudit(COA)forBARMMtoprovidetheirrespective insights on the administrativereform policies and guidelines beingdeliberated.

GENERALOBSERVATIONSONTHEPROPOSEDBANGSAMOROADMINISTRATIVECODE


StructureandContentsoftheCode

1. TheBOLisaminiConstitutioninrelationtotheproposedAdminCode.215

AprovisionintheBOLshouldnotberepeatedintheproposed BARMM Administrative Code since theformerisalreadyabindingandenforceablelaw.216Thereseemstobenogoodreasonforrepeating intheCodeprovisionsof theBOL– and, indeed, it isundesirable to do so, seeing that the Code is a

215Atty.MichaelHenryYusingco,LLM.,invitedexpertduringAugust14,2020consultation.216Atty.Yusingco.

79


subsidiarydocumenttotheBOLandcannotamendit.TherationaleforwhycertainsectionsoftheBOLwereomittedfromtheCode(especially,inthecaseof Parliament, the BOL provisions on Sessions;Officers;Rules;Proceedings),andalsoforwhyotherprovisions of the BOL were subject to minoramendments to the Code, also needs to beconsideredfurther.217

2.MuchofthesecondhalfoftheCode,andpartsof the first half, consist of what one wouldexpecttoseeinanAdministrativeCode–evenif, from a UK viewpoint, details of the way abureaucracyisorganizedarenotusuallysetoutin primary legislation: Whether some of themoreminoradministrativedetailssetoutintheCode really need to be expressed in primarylegislation is a question worth consideringfurther.218

3. Other parts of the Code may need furtheramplification, perhaps in a separate Code. Anexample is Chapter II on intergovernmentalrelations – these are likely to be tested asdisputesaboutboundariesofpowersarise,andmore detail about, for example, disputeresolution mechanisms may be needed. TheBangsamoro justice system also probablymeritsitsownCode;219

4.DoestheBARMMAdministrativeCodeserveitspurpose containing all the essential structural,functional and procedural rules and principlesofgovernanceof theBangsamoroGovernmentto guide the Bangsamoro government duringthetransition?220

217TheRoleofParliamentintheBangsamoroAdministrativeCode:AComparativeAssessmentbySirPaulSilk.APolicyBriefsubmittedbyWestminsterFoundationforDemocracy.218APolicyBriefsubmittedbyWestminsterFoundationforDemocracy. 219APolicyBriefsubmittedbyWestminsterFoundationforDemocracy.220Ma.ChristinaValte,invitedexpertduringAugust14,2020consultation.

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5. Aswritten intheAdministrativeCode, is thereanalignmentorharmonyofministrystructure,functions and authorities vis a vis theministrymandate?221

Organizational incongruities are evident in majorministries222

6. Can we say that the BARMM AdministrativeCode mirrors the streamlined and potentiallymoreefficientandmoreeffectivebureaucracycompared to the ARMM Regionalgovernment?223

7.Practicallyallofficesandministriesisheavilyonstaffposition,admin,finance,humanresource,etc, but lack those related to policy research,planningandmonitoringandevaluation224

8. The line functions are notwell-defined--all theunits that are critical in implementing thepriority programs of the Government of theDayasreflectedinministries’mandates225

9.ThedraftAdministrativeCodewasheavilyliftedfrom the ARMM Code, which in turn wascopied from the Administrative Code of 1987(Executive Order 292). This is a very old lawpromulgated during the Freedom Constitutionby President Cory Aquino in 1987. It is a 33-year old law, and there have beenmany lawspassed during the 33 years that changed thelandscape of said law. There may be manyprovisions of the ARMM Code copied in thedraftBARMMCode,whichmaynotbeeffectiveandoutdatedalready.

221Ma.ChristinaValte,invitedexpertduringAugust14,2020consultation.222Valte.223Valte.224Valte. 225Valte.

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10. The extensive citation of the ARMM

Administrative Code begs the question ofwhetherathoroughorganizationalassessmentwas undertaken to determine the appropriatestructure in light of the BangsamoroGovernment’smandate.226

11.The Code could benefit from somereorganization.Forexample,itseemsirrationalthat Book III, Title IV deals with the ChiefMinister,Ministers and the bureaucracywhenother provisions about these are contained inlater Books. The inclusion of an index and aTableofContentswouldalsobeveryhelpful.227

ParliamentaryFormofGovernment

1. Cabinet Bill No. 60 does not reflect aparliamentary structure, as the provision ofthebillleanstowardsapresidentialstructure,particularlygivingpowertothechiefministerthat inherently belongs to a presidentialsystem.So,inthatregard,CabinetBill60failsto represent a parliamentary system and aparliamentarystructure.228

2. The political relationship between theParliament and the Government of the Daywas not allocated with a specifiedadministrative policy in the AdministrativeCode.229

3. The “principle of separation of powers”,“principleofchecksandbalances,”“Systemofresponsible government,” and “System of

226Ma.ChristinaValte,invitedexpertduringAugust14,2020consultation.227TheRoleofParliamentintheBangsamoroAdministrativeCode:AComparativeAssessmentbySirPaulSilk.APolicyBriefsubmittedbyWestminsterFoundationforDemocracy. 228Atty.MichaelHenryYusingco,LLM.,invitedexpertduringAugust14,2020consultation.229Atty.Yusingco.

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Ministerial Responsibility” apply in aparliamentarysystem.230

4. Under the proposed Administrative Code, theactsoftheministersareconsideredasactsoftheChiefMinister.Thisdoesn’t findany legalbasis in the Parliamentary System and iscontrary to parliamentary principles andtraditions231

It is suggested that there should be a separatethemeonthismatterasfollows:2321. DefinetherelationshipofParliamentandthe

GovernmentoftheDay.2. Define the reporting and transparency

mechanismbetweentheParliamentandtheGovernmentoftheDay.

3. What are the structural mechanisms toaddressNo.1andNo.2above?

4. The Ministers to head their counterpartCommittees in the Parliament consideringshould be specified in the AdministrativeCode - that it should not be allowed sincethere would no effective accountability andtransparencymechanism. Therewould be aconflictofinterest.

5. The Parliamentary Structure must beprovidedforspecificallyintheAdministrativeCode.Thiswasnotincludedinthedraft.

5. Does the Code give a full description of how aparliamentarysystemoperates?233

AnAdministrativeCodeisnottheplacewherethepowers and responsibilities of Parliament

230Atty.MichaelHenryYusingco,LLM.,invitedexpertduringAugust14,2020consultation.231Atty.Yusingco.232Atty.Yusingco.233TheRoleofParliamentintheBangsamoroAdministrativeCode:AComparativeAssessmentbySirPaulSilk.APolicyBriefsubmittedbyWestminsterFoundationforDemocracy.

83


should be set out, let alone details of itsorganization or operational methods. Thatshouldbeinthebasicconstitutionaldocument(theBOLinthecaseoftheBARMM)andthenintheParliament’sownRulesofProcedure.SothefactthattheCodedoesnotfullydescribehow theparliamentary systemoperates doesnotseemtometobeaproblem234

6. Are there provisions in the Code that areinimical to the principal characteristics of aparliamentary system, and can these bealtered to strengthen the position ofParliament?

Many of the elements of a parliamentarysystem are contained in the Code. So theChiefMinister iselectedby theParliament; amajority of CabinetMinistersmust be drawnfromtheParliament;andthereisasystemofrequests, questions, interpellations andmotions by which Ministers can be held toaccount by MPs and their committees. Asprovided under Article 36 of the BOL,dissolution of the Parliament, and earlyelections, also occur in case of a vote of noconfidence in the Chief Minister byParliament. The fundamentals of aparliamentarysystemarethereforecontainedintheCode.235

7. Does the Code do anything to enhance thepowersofParliament?236

TheCodecertainlyprovidesforastrongChiefMinister with wide powers over otherMinisters and the agencies of the Executive,including the power of appointment and

234TheRoleofParliamentintheBangsamoroAdministrativeCode:AComparativeAssessmentbySirPaulSilk.APolicyBriefsubmittedbyWestminsterFoundationforDemocracy. 235APolicyBriefsubmittedbyWestminsterFoundationforDemocracy.236APolicyBriefsubmittedbyWestminsterFoundationforDemocracy.

84


dismissal. This has concerned somecommentatorswhoworry that sucha systemisincompatiblewiththeparliamentarymodel.However, the Prime Minister of India, thePrime Minister in the UK, the FederalChancellorinGermanyandthePrimeMinisterin New Zealand all have similar powers insystems that are fully parliamentary. Ofcourse, the ChiefMinister’s powers could becurtailed and some could be given toParliamentinstead.Butthepresentprovisionsareperfectlycompatiblewithaparliamentarysystem.237

8. Most importantly, however, there are greatindirect benefits for Bangsamoro’sParliament’s oversight and scrutiny rolebecauseofthedetailsetoutintheCode.Thisdetail (forexample,of theprecisedutiesofEachMinistry) will be invaluablematerial forparliamentarycommitteesastheyoverseetheexpenditure, administration and policies oftheBangsamoroExecutive. In that sense, thedetailed Administrative Code is a rich sourceforfutureParliaments.238

OnDevolutionofPowertoLGUs

DevolutionispartofthegovernmentphilosophyofBARMMgovernance.239

1.Revisittheprovisionson:

a. Agriculture. Revisit theprovisionsofBook5,Title1Chapter5,Sections14,15and16ofCabinetBill60.

b. Socialwelfare. Book 5, Title 13, Chapter 4Sections10-14

c. Health.Book5,Title5,Chapter4,Sections

237TheRoleofParliamentintheBangsamoroAdministrativeCode:AComparativeAssessmentbySirPaulSilk.APolicyBriefsubmittedbyWestminsterFoundationforDemocracy.238APolicyBriefsubmittedbyWestminsterFoundationforDemocracy.239Atty.RandolphParcasio,invitedexpertduringAugust14,2020consultation.

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10-12.2.Revisittheseprovisionsistoharmonizewiththe

pertinent provisions of the draft LocalGovernmentCodeinordertoascertainthatthelocalgovernmentunitsshalltaketheleadinthedelivery of these basic services so that if everministries continue to maintain delivery ofservices within their localities it will be toprovide supportive services and assistance toLGUs;

3. If the BARMM Government, however, also

continuestoexercisepowerovertheseservicesin the locality as written in the administrativecode,thisproposal, itmustfullycapacitatetheprovincialandmunicipaloffices.240

Onthepossibilityofestablishingaprofessionalbureaucracy;professionalandapoliticalcivilservice

The Administrative Code should divide theorganizationalstructureintotwo:

1. PoliticalStructure;and2. Apolitical Bureaucratic Structure: This

should not be affected by the turnover;insulated; there is a continuity in thetenure, where hiring and promotion doesnot depend on political appointments buton meritocracy and competitiveexaminations.”241

“The following offices may not be part of theAdminCodeandshallbegovernedbytheirspeciallegislation:

1. Commissions2. IGRbodies

240Atty.RandolphParcasio,invitedexpertduringAugust14,2020consultation.241Atty.MichaelHenryYusingco,LLM.,invitedexpertduringAugust14,2020consultation.

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3. Councils4. Judicialoffices”242

242Atty.Yusingco.

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Respectfullysubmitted,(Agreedtosign)

MPATTY.RAISSAH.JAJURIEPanelHead

(Agreedtosign)

MPZIAUR-RAHMANA.ADIONGMember

MPATTY.LAISAM.ALAMIA

Member

(Agreedtosign)MPPROF.EDDIEM.ALIH

Member

(Agreedtosign)MPATTY.SUHARTOM.AMBOLODTO

MemberMPENGR.BAINTANM.AMPATUAN

Member

(Agreedtosign)MPDR.SUSANAS.ANAYATIN

Member

(Agreedtosign)MPATTY.ANNATARHATAS.BASMAN

Member

(Agreedtosign)MPMUSAK.DIAMLA

Member

(Agreedtosign)MPATTY.MAISARAD.LATIPH

Member

(Agreedtosign)MPATTY.JOSEI.LORENA

Member

MPJAMELD.MACARAYAMember

(Agreedtosign)MPKHADAFEHF.MANGUDADATU

Member

MPAMILBAHARS.MAWALLILMember

MPATTY.RASOLY.MITMUG,JR.

Member

(Agreedtosign)MPATTY.UBAIDAC.PACASEM,CPA

Member

(Agreedtosign)MPDIAMILAD.RAMOS

Member

(Agreedtosign)MPROMEOC.SALIGA

Member

(Agreedtosign)MPATTY.OMARYASSERC.SEMA

Member

(Agreedtosign)MPROMEOK.SEMA

Member

(Agreedtosign)MPATTY.PAISALINP.TAGO

Member

(Agreedtosign)MPATTY.NABILA.TAN

Member

MPADZFARH.USMANMember

88

Documents

Final Panel Report on the Proposed Bangsamoro