Plan Methodology and the Bangsamoro Development Framework
CH A PT ER
3
3
Plan Methodology and the
Bangsamoro Development
Framework
11
Bangsamoro Development Plan
3
Plan Methodology and the
Bangsamoro Development Framework
A. Guiding Principles
The BDP is anchored in the Bangsamoro Development
The BDP’s technical recommendations were formulated
Framework (BDF) based on the BDA core values, with
by thematic experts, validated at the ground level, and
the dual objectives of sustainable human development
complemented
and peacebuilding. In line with the CAB implementation
(CVEs) that were conducted to define the vision, needs
principles of committing the parties to “acknowledge the
and aspirations, and sources of dissatisfaction across the
identity and legitimate grievances of the Bangsamoro”
Bangsamoro.
while affirming the individual rights of all individuals
in the community, the BDP is formulated through
wide participation in all sectors. Thus, the Bangsamoro
political entity will protect both individual and collective
rights while representing the diversity of the Bangsamoro
population in a truly democratic manner and enshrining
shared accountability.
Furthermore, Section XI of the Annex on Wealth
Sharing and Revenue Generation of the CAB states
that the development plan for the Bangsamoro shall be
formulated “in a manner that is consistent with national
development goals but recognizing unique needs and
aspirations of the Bangsamoro people.”
These principles require that the BDP be:
1. Anchored in the BDF;
2. Inclusive and respectful of the cultural diversity of
the Bangsamoro as enshrined in the CAB;
3. Informed by views from Bangsamoro communities
both across the potential Bangsamoro Core Territory
(BCT) and the adjacent expansion areas; and
4. Aligned with relevant national and regional
development plans.27
12
by
Community
Visioning
Exercises
B. The Bangsamoro Development
28
Framework
At the core of the BDF are the mutually reinforcing
frameworks of Peacebuilding and Sustainable Human
Development (SHD) (see Figure 2). By pursuing peace
in Mindanao and seeking political settlement of the right
to self-determination, the Bangsamoro can begin to build
a stable and prosperous society with a strong economy,
reliable security, respect for cultural diversity, protection
of the environment, and strong social services.
The
peacebuilding
framework
will
deliver
an
environment conducive to the political settlement
concerning the right to self-determination. At the
center of this are inclusiveness and consideration of all
stakeholders and of the drivers of violence and conflict in
the Bangsamoro.
The peacebuilding framework commits the Bangsamoro
to: (1) consulting all stakeholders; (2) increasing the
understanding of the structures that breed violence; (3)
developing capacities to avoid and resolve conflict; (4)
creating avenues of cooperation between communities;
Plan Methodology and the Bangsamoro Development Framework
Figure 2: Bangsamoro Development Framework
CH A PT ER
3
dividends across communities. It will also necessitate
providing a platform for non-Bangsamoro to participate
in decisions that affect them.
On the other hand, intra-community conflict needs to
be reduced to allow for a negotiated peace, a strong and
accountable governance system, and services that ensure
positive social outcomes. These are necessary conditions
to address the deep economic, cultural, environmental,
and security challenges in the region.
With a well-formulated plan based on specific sectoral
challenges, an integrated approach can deliver SHD
based on priorities identified by the Bangsamoro in line
with their right to self-determination.
In formulating these mutually reinforcing peacebuilding
Source: BDA (2014) modified from Abubakar (2013)
and SHD Frameworks, the BDP is guided by core values
that inform the approach to all interventions, namely:
with the ultimate goal to (5) helping attain reconciliation
among communities. By reducing inter- and intra-
1.Vicegerency—Man, according to the teachings of
community conflicts across the Bangsamoro, which are
Islam, is the representative and vicegerent of the
a major source of violence and distract from human and
Almighty Allah on Earth.29 This world is a trust and
economic development, it becomes possible to resolve
man is its trustee. Prophet Mohammad (peace be
longstanding state-minority contestation over the right to
upon him) also said: “All of you are shepherds and
self-determination.
all of you are responsible for your herds: The leader
is a shepherd and is responsible for his subjects.”
The political settlement between the GPH and the
MILF, supported by the international community and in
2.Transparency—In accordance with the Philippine
collaboration with conflict-affected communities, NGOs,
Constitution, the Bangsamoro will make “full
private and other actors, becomes the foundation of the
public disclosure of all its transactions involving
SHD Framework. At the center of the SHD Framework is a
public interest” and guarantee “the right of
strong commitment to governance- and institution-building
the people to information on matters of public
to enable the Bangsamoro to address the substantial
concern.” This is also enshrined in Islam, where
development challenges in the Bangsamoro after many
Muslim leaders believe that Allah (glorified and
years of neglect. This must be accompanied by effective
exalted be He) knows what is in one’s mind (i.e.,
social services that are essential to ensure positive health,
Allah said, “And I know what you reveal and what
education, and social outcomes.
you have concealed.”)
Inter-community conflicts (i.e., between Bangsamoro
3.Piety—God-consciousness
consists
in
practical
and settlers) will need to be addressed through inclusive
manifestation of one’s faith in one’s daily life,
measures, such as the equitable distribution of peace
which means desisting from everything that
13
Bangsamoro Development Plan
is disapproved of or forbidden. Man must be
shared accountability, meaning exercise of mutual
in a state of readiness to undertake all that is
concern by both officers and the public, and above all,
commanded and observe the distinctions between
accountability to the Almighty Allah, for “indeed, Allah
lawful and unlawful, right and wrong, and good
commands you to render trusts to whom they are due.”
and bad in life.
The importance of these values and principles of governance
4.Trustworthiness—This is a virtue everyone should
cannot be overemphasized under the BDF because it views
possess and practice, since everyone occupies a
governance and human development as indivisible. The
position of trust as a vicegerent. All believers will
soundness of governance depends on whether it sustains
be questioned in the life hereafter on how they
human development, while an educated, healthy, and
kept their trust.
prosperous society, in return, is required to sustain good
governance. These values and principles are not only
5.Justice—Justice is equality in the observation
of rights and in abiding obligations without
discriminations for any reason, such as religion,
race, color, or social status. Social justice means
giving each what he or she deserves, with financial
and other benefits in society being distributed
in order to attain equality in the fulfillment of
basic needs. It also ensures greater opportunities
for people so that each person has a chance to
improve oneself and one’s overall welfare.
6.Inclusiveness—Only inclusive peace will end the
conflict, so no section of society shall be left out.
Inclusiveness is enshrined in Islam as a way of life,
at all times and places and for all people.
embedded in all the human development areas but also in all
the components of peacebuilding.
C. Technical Analysis
The analysis and recommendations in this Plan are derived
from separate studies conducted on specific thematic areas30
by consultants and Bangsamoro experts recommended by the
BDA. In writing their reports, thematic teams closely consulted
with relevant national and regional government agencies. After
an initial review of the literature and data to assess the current
situation and identify problems and gaps, the initial findings
were validated through focus group discussions (FGDs) and
key informant interviews (KIIs) in selected Bangsamoro sites.31
In line with the transition to the Bangsamoro Government,
the recommendations are divided into two clusters: (1) a
7.Excellence—A person attains the highest quality
transitional phase (2015 to mid-2016) when governance of
in words, deeds, and thoughts by identifying his
the Bangsamoro areas shall be transferred from the ARMM to
or her will with that of the Almighty Allah and
the BTA and the Bangsamoro Government; and (2) a medium-
harmonizing it with the Divine will to the best of
term phase of indicative recommendations (mid-2016 to
his or her knowledge and ability.
2022) when a new governance structure will be in place,
together with its newly elected set of officers whose mandate
8.Accountability—Accountability means not only
accountability to the people in accordance with
will include determining the development trajectory of the
Bangsamoro.
the constitutional provision that “public office is a
14
public trust, and all public officers and employees
Throughout the BDP formulation process, the technical
must at all times be accountable to the people,
approach, analysis, and recommendations benefited from
serve them with utmost responsibility, integrity,
inputs, recommendations, and validation from the Project
loyalty, and efficiency, act with patriotism and
Steering Committee, the BDP Advisory Council, and the BDA
justice, and lead modest lives.” Rather, it is also
Board of Directors (see Table 1).
Plan Methodology and the Bangsamoro Development Framework
CH A PT ER
3
Through a series of consultations and forums to generate
socioeconomic wellbeing of the people; (3) inclusivity;
input and feedback, thematic drafts were presented to a
(4) promotion of transparency and accountability in
broad range of stakeholders, both inside and outside the
government transactions to achieve good governance;
Bangsamoro, including national and regional government
(5) attainment of a just and more equitable society; (6)
representatives,
society
promotion of peace, stability, and the rule of law; (7)
organizations, academic institutions, stakeholder groups,
preferential treatment for the poor (particularly vulnerable
MILF specialized agencies, and development partners.
groups); (8) reduction of vulnerabilities among the poor
officers
of
the
BTC,
civil
D. Clamor from the Ground
To ensure that the BDP adequately addresses the unique
needs and aspirations of Bangsamoro communities and
accounts for the cultural, ethnic, and religious diversity,
a series of ten32 one-day Community Visioning Exercises
(CVEs) was conducted across the proposed Bangsamoro
and expansion areas. Participants included members of
Moro groups (including both MNLF and MILF), settlers, and
also IPs, as represented by formal and informal community
leaders, and organized stakeholder groups (i.e., women,
youth, farmers, etc.). A comprehensive discussion of the
results and insights from the CVEs, cross-referenced against
similar past and parallel processes, is included in Chapter
5.
through climate change adaptation and implementation
of disaster-risk reduction and mitigation measures; and (9)
improvement and provision of adequate infrastructure to
further promote economic growth and development. Their
ultimate goal, therefore, is to improve the wellbeing of
individuals living in the area.
The strategies and visions of national and regional
development plans match the priorities identified from
the community consultations and are aligned with the
technical analysis of the development gaps in the BDP. In
turn, they have partially provided guidance to the BDP’s
recommendations. Annex C (Relevant National and
Regional Development Plans) presents a table summarizing
the national and regional development plans.
A round of Community Validation (CV) consultations
F. Limitations
was conducted on the draft BDP Integrative Report in the
In conducting the technical analysis of development gaps,
same areas and in additional identified key locations. This
thematic consultants and the Bangsamoro Development
ensured that the recommended interventions in the BDP
Plan Core Planning Team (BDP-CPT) found limited
were aligned with the identified needs and aspirations of
availability of highly disaggregated data. The analysis is,
the Bangsamoro communities. Technical validation was
therefore, based mostly on national data, disaggregated
also conducted to further ensure that the infrastructure
at the provincial and regional levels. Moreover, because
network, both existing and proposed, would achieve its
of the difficulty of obtaining data from municipalities and
goal of promoting connectivity and growth in the region.
barangays proposed for inclusion in the BCT, the ARMM
E. Review of Relevant National and Regional
Development Plans
The CAB provides for the formulation of a development
plan that is consistent with national development goals
while recognizing the Bangsamoro’s unique needs and
aspirations. A review of relevant national and regional
development plans reveals their key strategies and visions
to be as follows: (1) poverty reduction; (2) improved
was used as a proxy to the BCT.
Initial ideas were rendered on issues on normalization
and security given that the attainment of peace in the
Bangsamoro cannot be realized with socioeconomic
measures alone. However, because of the sensitivity of this
issue due to the ongoing negotiations between the GPH
and MILF negotiating panels, it was decided to remove
detailed discussion on this concern.
15
Bangsamoro Development Plan
Table 1: List of BDP Themes, Components, and Participating Partners
Theme
Components
Development
Partners
Government Counterparts
(NGA & ARG)
a. Economy and
Livelihood
Agriculture, fisheries and agro-based industry, economy and
livelihood, agribusiness, halal industry, Islamic finance and
banking, regional cooperation
JICA, ILO, MTF
(FEF), ADB, FAO
NEDA, ARMM-RPDO, DA,
DTI, DPWH
b. Infrastructure
Transportation, economic-related infrastructure
JICA, ADB, WB
NEDA, DPWH, ARMM-RPDO,
ARMM-DPWH
c. Social
Education, reproductive health, child health and nutrition,
domestic water and sanitation, social support infrastructure
DFAT Australia,
UNFPA, UNICEF
DSWD, DepEd, DOH, DILG
d. Environment and
Natural Resources
Natural resources (including mines and other extractive
industries), power, DRRM, forest and watershed management,
conventional and non-conventional (renewable) energy and
climate change, hazard, risk and emergency response, urban
ecosystems management, ecotourism and biodiversity
JICA, UNDP
DENR
e. Governance and Justice Governance, Shari’ah justice system, fiscal autonomy
TAF, UNDP, MTF
f. Culture and Identity
MTF
g. Security
TAF
h. Cross-Cutting
Concerns
Gender, youth and other vulnerable groups, peacebuilding,
food and nutrition, security
IOM, UN-WFP,
UN-Women
Source: BDP-CPT
NOTES
27 These include the Aquino administration’s Social Contract with the Filipino People; the Philippine Development Plan 2011–2016 Midterm Update;
Mindanao Strategic and Development Framework 2010–2020; Mindanao 2020: Peace and Development Framework Plan 2011–2030; and the ARMM
Regional Development Plan (2010–2016) Midterm Update.
28 The Bangsamoro Development Framework is based on the doctoral dissertation of Ayesah Abubakar, Building Peace in Conflict Affected
Communities through the Sustainable Human Development (SHD) Framework: A Case Study of Mindanao.
29 This is akin to the Christian concept of “stewardship.”
30 Refer to Annex B for the full listing of different thematic areas addressed by consultants, Bangsamoro focal persons, and supporting donor
partners and national and regional government agencies.
31 Feedback from BDA, government agencies, international partners, civil society, and other stakeholders was incorporated into consultant outlines
prior to field validation.
32 Community Visioning Exercises were conducted in the following areas: (a) Central Mindanao, (b) Davao, (c) Southern Mindanao, (d) Zamboanga
Peninsula, (e) Basilan, (f) Lanao del Norte, (g) Lanao del Sur, (h) Sulu, and (i) Tawi-Tawi.
16