rapid midterm review of the bansamoro transition … · 2020. 12. 4. · rights of indigenous...
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MPC IIBARMMTransitionMidterm ReviewII0
RAPIDMIDTERMREVIEW
OFTHEBANSAMORO
TRANSITIONPERIOD
October2020
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MPC IIBARMMTransitionMidterm ReviewII1
INTRODUCTION
Rationale
REPUBLIC ACT 11054, ALSO KNOWN AS an Act Providing Organic Law for the Bangsamoro
Autonomous Region in Muslim Mindanao, instructs that the transition period for the
establishment of Bangsamoro Autonomous Region in Muslim Mindanao (BARMM) shall
commenceupontheratificationofBangsamoroOrganicLawandwillendwiththeelectionand
qualificationoftheChiefMinisterunderthefirstParliamentinwhichtheregularelectionwillbe
synchronized with the 2022 national elections. With this timetable enshrined by law, it is
understoodthatthetransitionperiodwillbefromJanuary25,2019toJune30,2022.
Almost half-way in the transition period, civil society organizations, peace advocates and
grassroots communities see the need to conduct an independent Midterm Review on the
progressoftheTransitionPeriodtohelpensurethattheBangsamoroTransitionAuthoritywillbe
abletocarryoutitsmandateandsuccessfullyimplementtheletterandspiritoftheBangsamoro
OrganicLaw.More importantly, there isaneedtopreservethegainsof thepeaceprocessby
ensuring that the promised socio-economic and political reforms will actually be installed,
operationalizedandfeltbythepeople.
The conduct of a Rapid Midterm Review becomes more urgent with the coronavirus global
pandemicwhich pushedmillions of people to economic dislocation and abject poverty.With
national government grappling with the devastating economic consequences of prolonged
shutdownsandthecollapseofworldtrade,theBangsamoroissimilarlyfacedwiththeburdenof
proceedingwiththetransitionperiodundera“newnormal”wherepublichealthandsafetyof
theMoropeoplewillbeparamountwhileatthesametimeprovidetheeconomicstimulusthat
willhelpthemrecoverfromtheeconomicshock.
ThisRapidMidtermReviewpresentsagreatopportunityfortheBTAandstakeholderstopause
andrevisittheaccomplishments,discussproblems,makethenecessaryadjustments,andcome
upwithviablesolutionstoimproveandfast-tracktheimplementationofthetransitionmindful
thatthiswillhavetobeaccomplishedinapost-pandemicworldthatdemandsanewnormalway
oflife.
Objectives
TheRapidMidtermReviewisguidedbythefollowingobjectives,namely:
• DeterminethemidtermstatusoftheprioritiessettobeaccomplishedbytheBTA;• Identifygaps,keychallengesandproblemsencounteredbytheBTAandvariousBARMM
agenciesintheimplementationofthemandatedprioritiestobeimplementedduringthe
transitionperiod;and,
• Propose doable actions and recommendations to accomplish the remaining targetedpriorities.
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MPC IIBARMMTransitionMidterm ReviewII2
Methodology
Dataweregenerallygeneratedthroughrecordsreviewandsupplementedbyselectinformants
bymeansofface-to-faceandvirtualinterviewsandfocusedgroupdiscussions.Collectedfromthe
recordsreviewwerecopiesofthecodes,enactedlaws,cabinetreports,andpublishedmaterials,
andnewsarticlesintheinternet,amongothers.Thesewerethebasesfortrackingthestatusof
thesetprioritiesasprovidedforintheBOL.
Thirty (30) key personalities were interviewed which were conducted through face-face and
virtual(Zoom)interviewsbetweenthemonthsofAugustandSeptember2020.Mostofthemare
members of the BTA and the Government of the Day. They provided information about the
accomplishmentsof theBangsamoroTransitionAuthority/BangsamoroAutonomousRegion in
MuslimMindanao(BARMM),thechallengesencounteredinpursuingthetargetedpriorities,and
itsplansfortheremainingunaccomplishedtargets.(Annex1.ListofKIIParticipants)
Participantsofthefocusgroupdiscussionswereaskedtorevisitthehopesorbenefits--alsoknown
aspeacedividends--theyexpectedfromthecreationoftheBARMMasthenewpoliticalsystem
ofgovernanceintheBangsamororegion.Likewise,theywerequeriedabouttheirknowledgeof
theBARMM’saccomplishments so far, and their ideasaboutwhat they can contribute to the
realizationoftheirhopesandthatoftheBangsamoropeople.1Atotalof232participantsjoined
theFGDsconductedbetweenthemonthsofAugustandSeptember2020.Theywereselected
fromthesectorsofwomen,youth,business,internallydisplacedpersons,andIndigenousPeoples
(Annex 2. List of FGD Participants). As BARMM constituents, they represent the ultimatebeneficiariesofthepeacedividendspromisedtothembytheGovernment,theMILF,civilsociety
organizationsandtheinternationalcommunityinthelargercontextofthepeaceprocess.
1 FGDmoderatorsanddocumenterswerebriefedonhow tocarryout theactivity so that therewasuniformityofapproachandprocessacrossallfocusgroupdiscussions.Notethathealthprotocolssuchassocialdistancing,wearingoffacemasks,andhandsprayingofalcoholwerestrictlyobserved.
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MPC IIBARMMTransitionMidterm ReviewII3
BARMM’sPrincipleofMoralGovernance
NOLESSTHANMINISTERMOHAGHERIQBALofMinistryofBasic
Higher and Technical Education, Bangsamoro Autonomous
Region in Muslim Mindanao; and Chairman, Moro Islamic
LiberationFrontPeacePanelconciselyputit:BARMM’sprinciple
of Moral Governance is “inspired by the teachings on Islamic
Leadership” and “shall guide all actions of the Bangsamoro
government.” In a nutshell, he added, this principle is about
employingethicalvaluesingovernanceexpectedofeveryleader
orofficialwhomusteffectivelyandefficientlyimplementlawful
programsforpeople’sgeneralwelfare.Moreover,“commitment
to Moral Governance means shunning all forms of graft and
corruption. Corruption, in any form, is unacceptable to the
BARMM. Itunderminesgoodgovernanceby subverting formal
and legal processes. It erodes the institutional capacity of
governmenttodeliverservicesiflawfulproceduresareviolated,
andpublicofficesareboughtandsold. Itbetraysthetrustand
confidenceoftheBangsamoropeoplewhenpreciousresources
aresiphonedoff.IftheBARMMfailstoupholdMoralGovernance
and tolerate corrupt practices in this region, we would have
wastedfiftyyearsofourstruggleforpeace,justice,andtheright
toself-determination.”2
MoralGovernanceasanewframeworkofgovernanceconveysastrongandappealingmessage
that the BARMM under the leadership of the MILF will run an ethical, moral and honest
government.Ordinarypeopleinthecommunitycanreadilycomprehenditsmeaningbasedon
theirown Islamicvaluesandteachingsofwhat is rightandwrong.Theoath-takingbeforethe
Qur’anonmoralgovernancestrengthenedthecommitmentofeachandeverymemberofthe
BTAincludinglocalchiefexecutivestofightagainstcorruptionandcleanthegovernment.While
itistooearlytomeasurethesuccessofmoralgovernance,ithasalreadysucceededininstillinga
zero-toleranceagainstcorruptionandsettingthebarhigherforpublicserviceinthenewpolitical
entity.
2loc.cit.
MoralGovernancereferstothesetofrules,
practices,andprocessescompletelydevoidofall
theevilsofgraftandcorruption,andexplicitly
drivenbymoralprinciplesofutmost
dedication,devotion,honesty,justice,and
integrity.
(Source:DerivedfromtheOathofMoralGovernance)
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MPC IIBARMMTransitionMidterm ReviewII4
TransitionGoal,Outcomes3andTimelines
IT IS IN THE SPIRITOF the principle of GoodGovernance that theOffice of the Interim Chief
MinisterthroughtheCoordinationTeamfortheTransition(CT4T)totheBangsamoroTransition
Authority (BTA) crafted the Transition Plan, 2019-2022. The Goal, Outcomes and Timelines
statementsareindicativeoftheBARMMgovernment’sIslamicleadership.
GoalTHE TRANSITION PERIOD IS AIMED at ensuring smooth transition from ARMM Regional
Government to BangsamoroGovernment. Specifically, at the end of the three-year transition
period,thefollowinghavebeenaccomplished,namely:
Outcomes4 Outcomes ResponsibleAgency1. ParliamentaryRulesandProceduresdraftedandapproved BTA2. SubmissionofTransitionPlanthatcontainstheproposed
organizationalplan,aswellas,thescheduleofimplementationOfficeofInterimChief
Minister3. TransitionPlanapproved BTA4. OrganizationofthebureaucracyoftheBangsamoroGovernment
duringtransition,theinstitutionofaplacementprocessforhiringofpersonnelduringtransition,includingthesetting-upofofficeandotherinstitutionsnecessaryforthecontinuedfunctioningofgovernmentanddeliveryofservicesintheBangsamoroAutonomousRegion,aswellas,thosenecessaryforthesmoothoperationsofthefirstelectedBangsamoroGovernmentin2022
BTA
5. CreationofofficesmandatedbytheBOL BTA
6.
FulltransferofpowersandpropertiesofARMMtoBARMM,exceptthoseproperties,landandstructureslocatedoutsideoftheAutonomousRegioninMuslimMindanao,owned,controlled,administered,orinthepossessionoftheAutonomousRegionalGovernmentinMuslimMindanao,shallbepurchasedbytheNationalGovernmentatapricetobedeterminedthroughtheintergovernmentalrelationsmechanismwithinone(1)yearfromtheratificationoftheBOL
BTA/Ministriesandotherconcernedoffices/agencies
7. Parliamentarydistrictsdetermined BTA8. Transferofnationalgovernmentpropertiesandassets BTA9. Enactmentoflawtorecognize,protect,promoteandpreservethe
rightsofIndigenousPeoplesBTA
10. Prioritybillenacted a. BangsamoroAdministrativeCode BTA b. BangsamoroElectoralCode BTA c. BangsamoroRevenueCode BTA d. BangsamoroLocalGovernment BTA
3Strictlyspeaking,ifwefollowthetechnicaldefinitionofOutcomes,theenumeratedthereinareconsideredOutputs
4Source:EnhancedTransitionPlan2019-2022fortheBangsamoroTransitionAuthority(BTA).SeeTable2.TransitionPlanMatrix,2019-2022,pages100-101.
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MPC IIBARMMTransitionMidterm ReviewII5
Outcomes ResponsibleAgency e. BangsamoroEducationCode BTA f. CivilServiceCode BTA
Timelines5
Activity ResponsibleOffice(s)Target
Date/Timeline1 ApprovaloftheTransitionPlan BTAParliament June20192 Proposal/PresentationofStaffing PerMinistry/Office/Agency June2019
3PatternswithComputationofSalaries,BenefitsandAllowancesApprovalofMinistry/Office/AgencyStaffingPatterns
Cabinet/BTAParliament June2019
4 Preparationof2020BTA-BARMMBudgetOfficeoftheInterimChiefMinister/Ministries/Offices/Agencies
June2019
5 ProfilingofPersonnelComplement PerMinistry/Office/Agency June20196 ComputationofSeparationIncentives PerMinistry/Office/Agency June2019
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CoordinativeactivitieswithHousesofCongressforInclusionofAnnualBlockGrantandSpecialDevelopmentFundinthe2020GeneralAppropriationsAct(GAA)andtheiravailability
OfficeoftheInterimChiefMinister/BTAParliament/MinistryofFinance,Budget&Management
July2019
8SettingupofHELPDeskforprocessingofseparationincentives
OfficeoftheInterimChiefMinister
July2019
9Finalizationofbatchesofphasingoutbasedonagreedcriteriaandapprovedschedule
PerMinistry/Office/Agency July2019
10SubmissionofDEMRequestforReleaseofSeparationIncentives
OfficeoftheInterimChiefMinister/BTAParliament
July2019
11Deliberationsof2020BTA/BARMMBudget
BTAParliament July-Nov2019
12 Approvalof2020BTA/BARMMBudget BTAParliament Nov2019
13Implementationofthephasingoutofpersonnel(bybatch)
PerMinistry/Office/Agency Oct-Dec2019
14ActivationoftheRecruitment,SelectionandPlacementProcessintheBTA-BARMM
PerMinistry/Office/Agency Dec2019
15PublicationofVacantPositionsintheBTA-BARMM PerMinistry/Office/Agency Dec2019
16AcceptanceofApplicationsforEmployment PerMinistry/Office/Agency Dec2019
17 MassiveHiringprocess PerMinistry/Office/Agency Dec2019
18 LegislationofPriorityCodes BTAParliamentSept2019toFeb
2020
5Source:EnhancedTransitionPlan2019-2022fortheBangsamoroTransitionAuthority(BTA).SeeTable1.ProposedTimeline,pages97-98
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MPC IIBARMMTransitionMidterm ReviewII6
BARMM’sMidtermTransitionMilestones
VIEWEDASTHEDEFININGMOMENTFORthefutureofMindanao,twoplebisciteswereheldon
January21andFebruary6,2019thatratifiedtheBangsamoroOrganicLaw(BOL).Citizensofthe
provincesofBasilan(except IsabelaCity),LanaodelSur,Maguindanao,SuluandTawi-Tawi,as
wellasMarawiCity,LamitanCity,CotabatoCity,and63barangaysinCotabatoProvincedecided
to be part of the Bangsamoro Autonomous Region inMuslimMindanao (BARMM).With the
ratificationoftheBOLcommencesthetransitionperiodfromARMMtoBARMM.
1. DraftedandapprovedtheParliamentaryRulesandProceduresThefirstorderofbusinessoftheBangsamoroTransitionAuthoritywastopassResolutionNo.66
entitled “Resolution Providing for Parliamentary Rules, Procedures, and Practices of the
BangsamoroTransitionAuthorityoftheBangsamoroAutonomousRegioninMuslimMindanao.”
Adoptedon 21May 2019 entitled the “Parliamentary Rules, Procedures, and Practices of the
BangsamoroTransitionAuthority,”itprovidedforthelegislativeproceduresintheconductofall
sessions, committeehearings andmeetings, andother similar activitiesof theBTA. TheRules
aimed(a)toascertainthewillofthemajority,(b)topreservetherightsoftheminority,and(c)
tofacilitatetheorderlyconductofbusinessintheBTA.
ThelatestamendmentsontheRuleswasResolutionNo.70,entitled,“ResolutionApprovingthe
EnhancementMadeby the Committee onRules on the Parliamentary Rules, Procedures, and
Practices of the Bangsamoro Transition Authority of the Bangsamoro Autonomous Region in
MuslimMindanao(BTA-BARMM)”wereadoptedon17June2020.TheRulesfacilitatedtheorder
andpredictability in the conduct of thebusiness of theBTA. TheCommitteeonRules has 29
memberswithMajorityFloorLeaderLanangT.Ali,Jr.asChairpersonandMinorityFloorLeader
LaisaM.AlamiaasVice-Chairperson.
2. EstablishedBangsamoroTransitionAuthority(BTA)ParliamentAlsoknownastheinterimBangsamoroParliament,itisthelegislatureofthetransitionalregional
governmentofBangsamoro.ItwasfirstconstitutedonFebruary22,2019duringwhichthefirst
setofmemberstooktheiroathofoffice.OnMarch29,theinauguralsessionbeganandendedon
April23,2020.ThesecondregularsessionbeganonJune16,2020.OfficiallycalledMPs,theBTA
Parliamentiscomposedof80appointedmembers;41werenominatedbytheMILFand39bythe
nationalgovernment.Outof80members,67aremaleswhile13arefemales.Thetermofoffice
ofBTAParliamentcoversMarch29,2019untilJune30,2022whendemocraticelectionsareheld.
As the interimBangsamoroParliament and interimBangsamoroGovernment, it exercises the
legislative and executive powers in the BARMM during the transition period. The executive
authorityisvestedintheinterimChiefMinister.TheBOLalsomandatedtheBTAParliamentto
6ResolutionProvidingforParliamentaryRules,Procedures,andPracticesoftheBangsamoroTransitionAuthority,BangsamoroTransitionAuthorityResolutionno.6,asamended,[BARMMBTAResolutionNo.6,asamended],BTAParliament,1stReg.Sess.(May21,2019).
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MPC IIBARMMTransitionMidterm ReviewII7
prepareandcreatethenecessaryinstitutionsandmechanismsaspartoftheestablishmentofthe
BangsamoroGovernment.7
3. Organized the bureaucracy of the Bangsamoro Government during transition, theinstitutionofaplacementprocessforhiringofpersonnelduringtransition,includingthe
setting-up of office and other institutions necessary for the continued functioning of
governmentanddeliveryofservices intheBangsamoroAutonomousRegion,aswellas,
thosenecessaryforthesmoothoperationsofthefirstelectedBangsamoroGovernmentin
2022
Theorganizationof thebureaucracyof theBangsamoroGovernment8madesignificantstrides
with the appointment of a highly functional Interim Cabinet and Parliament. Pending the
enactmentoftheAdministrativeCode,theBARMMiscurrentlyadoptingtheinterimstructure
basedontheapprovedEnhancedTransitionPlan.Necessaryofficesandinstitutionswerecreated
forthecontinuousfunctioningofgovernmentanddeliveryofsocialservices,andforthesmooth
operationsofthefirstelectedBangsamoroGovernmentin2022.
ThreeimportantlegislationswereenactedduringthefirstorderofthedayoftheBTAParliament.
One,BangsamoroAutonomyActNo.1–AnActAdoptingtheOfficialFlagof theBangsamoro
Autonomous Region in Muslim Mindanao. Two, Bangsamoro Autonomy Act No. 2 – An Act
Adopting theOfficial Emblem for the Bangsamoro Autonomous Region inMuslimMindanao.
Three,BangsamoroAutonomyActNo.7–AnActAdoptingtheNationalHymnoftheBangsamoro
AutonomousRegioninMuslimMindanao.
• EnhancedTransitionPlanwassubmittedbytheinterimChiefMinisteranddulyapprovedbytheBTAParliament–TheBOLspecificallytaskedtheinterimChiefMinistertosubmitto
theBTAParliament,withinthefirst60daysofthetransitionperiod,aTransitionPlanthat
shallcontainalsotheproposedorganizationalplanandthescheduleofimplementationas
well. It was drafted by the Coordinating Team for the Transition (CT4T), composed of
governmentandMILFpeople.Itwastimelysubmittedon30May2019.TheBTApasseda
resolutionformallyapprovingtheTransitionPlaninaspecialsessiononJune17,2019.9Note
thattheoriginaltimelinefortheapprovalofTransitionPlanwasJune2019.
As indicated in the Executive Summary, the Transition Plan identified the new structural
frameworkoftheBARMM,basedontheprovisionoftheBOLtakingintoconsiderationthe
existingstructure,budget,andotherrelevantfeaturesoftheARMM.Alsoconsideredwere
prioritylegislationsthatwouldpavethewayforthesmoothtransitionfromARMMtothe
establishmentoftheBTA.10AlsoprovidedintheTransitionPlanwereguidingprinciplesand
policiesfortheBTAanddescriptionsofinstitutionallinkagesandmechanismsfortransition.
7Source:EnhancedTransitionPlan,2019-2022fortheBangsamoroAuthority,page3.8Paragraph(d)Section2ArticleXVI. 9OnthesamedaythattheTransitionPlanwasapproved,theBTAParliamentalsoapprovedBTABillNo.4,AnActAppropriating and Authorizing the Disbursements of P10.1 billion for Public Works and Other Purposes. Source:https://bangsamoro.gov.ph/news/latest-news/bta-approves-proposed-transition-plan/10Source:EnhancedTransitionPlan,2019-2022fortheBangsamoroAuthority,pageii.
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MPC IIBARMMTransitionMidterm ReviewII8
It also included a general Timeline of the Activities and the Assigned Ministry/Office
responsibleforeachactivity.TheTransitionPlaniscontainedin126pagesanddividedinto
fivechapters,towit:
Chapter1–Introduction
Chapter2–TheBangsamoroTransitionAuthority
Chapter3–TransitionMechanisms
Chapter4–StructureandPersonnel
Chapter5–AgenciestobeCreated
• ImportantofficesandInstitutionswerecreated--TheGovernmentoftheDayproposedthe
creationofimportantofficesintheBangsamoro.TheBTApassedresolutionsapprovingthese
offices:
o Bangsamoro Autonomy Act No. 4 – An Act operationalizing the establishment ofBangsamoroHumanRightsCommissionprovidingforitsmandate,powersandfunctions
ofBangsamoroHumanRightsCommission,appropriatingfundstherefor,andforother
purpose;
o BangsamoroAutonomyActNo.5–AnActcreatingtheBangsamoroAttorney-General’sOffice, defining its functions and powers, appropriating funds therefor, and for other
purpose. The office was established with the appointment of the Attorney-General,
lawyers,andstaff.
o BangsamoroAutonomyActNo.6–AnActestablishingtheBangsamoroSocio-EconomicDevelopmentPlanningSystem,providingfundstherefor,andforotherpurposes;
o BangsamoroAutonomyActNo.8–AnActcreatingtheBangsamoroWomenCommissionoftheBARMM,providingfor itspowers, functionsandcompositionandappropriating
fundstherefor;
o BangsamoroAutonomyActNo.10–AnActcreatingandestablishingtheBangsamoroYouth Commission, defining its powers, functions and responsibilities, appropriating
fundstherefor,andforotherpurposes.
o Committee Bill No. 52, entitled “An Act creating Bangsamoro Sports Commission,providingforitsmandate,powers,andfunctions,appropriatingfundstherefor,andfor
otherpurposes.
TheenactmentoflegislationscreatingtheHumanRightsCommission,BangsamoroWomen
Commission,andBangsamoroYouthCommissiontoformpartoftheInterimCabinetreveals
a highly progressive view on the important role of human rights, gender, and youth.
NotwithstandingthefactthatthesearenotmandatedprioritylegislationfortheBTA,ithas
showedthattheconcernforhumanrightsandtheprotectionofwomenandyouthareequally
significantbypassingtheseevenaheadoftheprioritycodes.
• ARMMpersonnelgraduallyphasedout --Separation incentiveswere reportedlygiven totheaffectedpersonnel.IntheARMMTransitionReport,therewere5,062employeesholding
plantillapositionsoutsideofthethreeARMMagencies(i.e.,Education,SocialServicesand
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MPC IIBARMMTransitionMidterm ReviewII9
Health)asofSeptember2018.11Notethatthisfigurevariesaccordingtodifferentsources.
TheOfficeoftheAttorneyGeneralaccounted3,997plantillaemployeeswhilevariousmedia
outlets, including the government-ownedPhilippine InformationAgency (PIA) cited about
6,000employeestobeaffectedbytheplannedphaseout.
BeginningNovember2019, theDepartmentof
Budget and Management had issued the
necessary Notices of Cash Allocation (NCA) to
cover the separation incentives of those
affected employees. The NCA is the cash
authority issuedbytheDBMtocoverthecash
requirements of the agency’s program and
projects.Theseareutilizedwhenagenciesissue
checksorAdvicetoDebitAccount(ADA)against
their cash authority. NCA utilization also
includesoutstandingchecks,orchecksissuedby
theagencybutnotyetencashedatthebankby
thecreditor/s.12
Table2showsthe14NCAsissuedbytheDBMforfiscalyears2019and2020,respectivelyin
theamountofP4,100,367,782(fortheseparationincentivesof3,902affectedemployees.
NotethattherearealsootherNCAsissuedthatcoveredtheterminalbenefitsofemployees
butarenotincludedinthisreport.
Table2.NoticeofCashAllocationissued/releasedtoBARMMfortheseparationincentivestoARMMpersonnel
2019Releases13
NCANo.Amount(inpesos)
ApprovedDate
ReleasedDate
Department AgencyOperatingUnit
EmployeesCovered
NCA-BMB-D-19-0024898
267,973,065 11/26/2019 12/03/2019 BARMM BARMM BARMM 267
NCA-BMB-D-19-0025121
233,925,715 11/28/2019 12/03/2019 BARMM BARMM BARMM 168
NCA-BMB-D-19-0025339
663,235,975 11/29/2019 12/04/2019 BARMM BARMM BARMM 481
NCA-BMB-D-19-0026435
181,066,987 12/17/2019 12/18/2019 BARMM BARMM BARMM 229
Total 1,346,201,742 1,1452020Releases14
NCA-BMB-D-20-0001645
290,660,339 2/06/2020 2/10/2020 AllocationstoLGUs
BARMM 570
NCA-BMB-D-0002111
317,564,667 2/18/2020 2/19/2020 AllocationstoLGUs
BARMM 310
NCA-BMB-D-0003297
293,637,055 3/12/2020 3/20/2020 AllocationstoLGUs
BARMM 231
11ARMMTransitionReportBook1:MainReport,p.3912https://www.dbm.gov.ph/index.ph/secretary-s-corner/press-releases/list-of-press-releases/1384-nca-utilization-reaches-60-in-january-201913https://www.dbm.gov.ph/wp-content/uploads/NCA/2019/NCA-2019.pdf14https://www.dbm.gov.ph/index.php/programs-projects/notice-of-cash-allocation-nca-listing
Table1.Scheduleofphasing-outofARMMpersonnel
Batch NumberofEmployees
DateofSeparation
FirstBatch 1,003 31Oct2019SecondBatch 1,042 30Nov2019ThirdBatch 1,930 31Dec2019Others 22 Total 3,997
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NCA-BMB-D-0003397
1,130,212,782 3/16/2020 3/20/2020 AllocationstoLGUs
BARMM 959
NCA-BMB-D-0004429
292,054,896 3/24/2020 3/25/2020 AllocationstoLGUs
BARMM 287
NCA-BMB-D-0004745
387,147,516 3/31/2020 4/1/2020 AllocationstoLGUs
BARMM 386
NCA-BMB-D-20-0005950
9,008,615 5/21/2020 5/26/2020 AllocationstoLGUs
BARMM 3
NCA-BMB-D-20-0008315
1,033,516 7/20/2020 7/22/2020 AllocationstoLGUs
BARMM 5
NCA-BMB-D-20-0008656
1,589,285 7/27/2020 7/28/2020 AllocationstoLGUs
BARMM 1
NCA-BMB-D-20-0009165
40,265,984 8/18/2020 8/24/2020 AllocationstoLGUs
BARMM 5
Total 2,754,166,040 2,754
Total2019&2020 4,109,376,397 3,902
• BTAapprovedtheplacementprocessforhiringofpersonnelduringtransition--ArticleXVI,Section10oftheOrganicLawdirectedtheBTAto“instituteanindependent,strictlymerit-
based,andcredibleplacementandhiringprocessforalloffices,agencies,andinstitutionsin
theBangsamoroGovernment,andshallconsidergenderandethnicbalance.”
StipulatedintheBTAapprovedTransitionPlanwereguidelinesontherecruitment,selection
andplacementofhumanresourceintheBangsamoroGovernment.Theseguidelineswere
issued to facilitate theprocessofhumanresource recruitment, selection,andplacements
andfillingupofpositions intheApprovedStaffingPattern(ASP)asaresultofthegradual
phasingoutofofficesintheARMMandthesubsequentcreationofnewofficesintheBTA.15
Moreover, the guidelines indicated somemajor provisions such as the publication of the
vacantpositionsauthorizedtobefilledandtheircorrespondingqualificationstandardsand
plantilla itemnumbersintheCivilServiceCommission(CSC)BulletinofVacantPositionsin
theGovernmentintheCSCWebsiteorthroughothermodesofpublicationsuchastheBTA
Website,newspapersandotherjobsearchwebsites.
• Launched the Bangsamoro Job Portal -- the Bangsamoro Government launched aBangsamoro Job Portal to the public on 30 December 2019. According to ChiefMinister
Ebrahim,theplatformwascreatedaspartoftheBangsamoroGovernment’scallformoral
governanceanditspolicytostrictlyimplementthemerit-basedhiringprocessandcredible
jobplacement.16 Jobseekerscannowsubmit their resumeonlineso thateven if theyare
fromthefarthestpartoftheBangsamoro,theyneednothavetotravelandspendtheirhard-
earnedmoneytogettheirapplicationreceivedbytheBangsamorogovernment.Theportal
screensapplicantsbasedontheirmeritandcredibility.AsofJuly2020,itwasreportedthe
portal has received around 295,813 applications for the 4,094 positions posted by the
15LiftedfromEnhancedTransitionPlan2019-2022fortheBangsamoroTransitionAuthority(BTA)16https://bangsamoro.gov.ph/news/latest-news/barmm-launches-bangsamoro-job-portal/
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MPC IIBARMMTransitionMidterm ReviewII11
differentministries and offices of the BARMM, this redounds to a ratio of 72 applicants
competingfor1positiononly.
4. EnactedtheBangsamoroAppropriationsAct(BAA)TheenactmentoftheBAAisconsideredasawatershedachievementoftheBTA.Thisisthefirst
timethattheMoroleadershaveallcometogetherasaParliamentinordertoplanandallocate
theBlockGrantinaccordancewithwhattheyseeastheactualneedsoftheBangsamoropeople.
Itisalsothefirstbudgetingprocess,undertheBlockGrantmechanism,wheretheBARMMcan
trulyclaimthatthereisfiscalautonomyastheynolongerhadtobegandjustifyfundsbefore
Congress.Minister EduardGuerradescribed theBAAas a postwarbudgetwhichwill have to
satisfythehighexpectationsofthepeople.TheBAAmaynotbeenoughbutitissomethingthat
theBARMMGovernmentcansubstantiallystart.17
In the firstBangsamoroAppropriationsAct (BAA),abigchunkof thebudgetwasgiven to the
MinistryofBasic,HigherandTechnicalEducation(MBHTE)amountingtoP19,056,935,766.67.In
comparison with the 2019 GAA, the BAA 2020 has been able to increase the budget of the
Ministries, particularly the Ministry of Indigenous Peoples Affairs which increased from
P21,365,000.00toP99,635,217.70.Herearesomebasicexamples(Table3):Table3.Comparisonbetween2019GAAand2020BAAonselecteddepartmentsandministries
2019GeneralAppropriationsAct 2020BangsamoroAppropriationsAct
DepartmentBudget
AppropriationMinistry
BudgetAppropriation
DepartmentofInteriorandLocalGov’t.
169,525,000.00MinistryofInteriorandLocalGov’t.
1,354,637,972.84
DepartmentofScienceandTech. 27,544,000.00 MinistryofScienceandTech. 164,560,997.76DepartmentofHealth 1,504,135,000.00 MinistryofHealth 3,069,533,195.95DepartmentofTransportationandCommunication
67,487,000.00MinistryofTransportationandCommunication
214,911,562.40
OfficeoftheSouthernCulturalCommunities
21,365,000.00MinistryofIndigenousPeoplesAffairs
99,635,217.70
Moreover,the2020BAAhasreservedbudgetfor
purposessuchastofundtheofficesthatwillbe
createdbytheBTAandappropriateauthority,to
support BARMM’s local moral governance
initiatives,salaryadjustments,andthelike.(Table4)
17InterviewwithMPMemberandFormerMinisterofFinanceandPublicWorksEduardGuerra,6August2020
Table4.ReservedBudgetinthe2020BAAParticulars AmountMiscellaneousandPersonnelBenefitFund
9,280,558,584.58
ContingentFund 13,201,891,779.81
Particulars
Miscellaneous
andPersonnelBenefitFund
Contingent
Fund
Particulars
Miscellaneous
andPersonnelBenefitFund
Contingent
Fund
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MPC IIBARMMTransitionMidterm ReviewII12
SourcesofFunds
ArticleXIIoftheOrganicLawprovidestheBangsamoroGovernmentthepowertocreateitsown
sources of revenues for the purpose of attaining economic self-sufficiency and genuine
development.Thelawspecificallystipulatesthattherevenuesshallbespentinaprogrammatic,
transparent,performance-based,andphasedmanner.18Apartfromitssourcesofrevenues,the
Organic Law also provides the following fiscal support to be provided by the National
Government:
• Annual Block Fund – the National Government shall provide an annual block grant
equivalentto5%ofthenational internal revenuecollectionsof theBureauof Internal
Revenue and Bureau of Customs. The annual block grant shall be automatically
appropriatedintheGeneralAppropriationsActoftheCongressofthePhilippinestothe
BangsamoroGovernment.Itshallbereleasedwithoutneedofanyfurtheraction,directly
andcomprehensivelytoBangsamoroGovernment,andshallnotbesubjecttoanylienor
holdbackthatmaybeimposedbytheNationalGovernmentforwhateverpurpose.19The
BARMMBlockGrantforFY2020isdistributedthisway:20%goestoCapitalOutlay;33%
to MOOE; and 47% to Personnel Services. Specifically stipulated in the Organic Law
assigningthehighestbudgetaryprioritytoeducation,health,andsocialservices.20(SeeTable5fortheBlockGrantBudgetbyMinistry)
• SpecialDevelopmentFund–anamountequivalenttoP50billionorP5billionperyearfor
aperiodof10yearswillbeprovidedby theNationalGovernment to theBangsamoro
Government.21
• OtherBudgetarySupport fromtheNationalGovernment–undertheFY2020National
ExpenditureProgram(NEP),theBangsamoroGovernmentwillreceiveP8.804billionfrom
theNationalGovernment.22
• InternalRevenueAllotmentAllocation (IRA) – the LocalGovernmentUnits (LGUs) that
comprised the BARMMwill receive their respective IRA. ForNEP 2020, an amount of
P31.332billionwillbedistributedtothefollowingLGUs:Basilan–P3.366billion;Lanao
delSur–P11.038billion;Maguindanao–P8.127billion;Sulu–P5.260billion;andTawi-
Tawi–P3.540billion.23
On30November2019theBTA-BARMMbudgetforFY2020wasapproved.BTA-CabinetBillNo.
31entitled“AnActappropriatingfundsfortheoperationoftheBangsamoroAutonomousRegion
inMuslimMindanao(BARMM)fromJanuary1toDecember31,2020,andotherpurposes"was
approvedbytheBTAParliamentwith48“yes”votes,one“no”vote,andfiveabstentions.Hailed
18ArticleXIIFiscalAutonomyoftheBOL.19Ibid.,Sections15-1820https://accessbangsamoro.ph/wp-content/uploads/2020/02/AccessBangsamoro_2020-BARMM-Budget-Brief.pdf.ThispaperexaminedtheBARMMBudgetforFY2020.Formoredetails,pleaserefertohttps://accessbangsamoro.ph/wp-content/uploads/2020/02/AccessBangsamoro_2020-BARMM-Budget-Brief.pdf,page4.21Ibid.22Ibid.23loc.cit.Formoredetails,pleaserefertohttps://accessbangsamoro.ph/wp-content/uploads/2020/02/AccessBangsamoro_2020-BARMM-Budget-Brief.pdf,page4.
-
MPC IIBARMMTransitionMidterm ReviewII13
asaninclusivebudget(i.e.,inclusiveforalltheBangsamoropeople)theBAAFY2020containsthe
priorityplans,projects,andprogramsoftheBangsamoroGovernment.24
ThetotalbudgetforFiscalYear2020isP65.3billion.Beforetheapprovalofthebudget,eachof
the Bangsamoro ministry and offices submitted to the Ministry of Finance, Budget and
Managementtheirrespectivebudgetproposals.Afterreviewanddeliberation,theinterimChief
Minister with the cabinet, approved the proposals and, after which, the 2020 Bangsamoro
ExpenditureProgram(BEP)wascraftedandsubmittedtotheBTAParliamentforapproval.The
BARMM’s2020budget is twice the lastbudgetof thedefunctAutonomousRegion inMuslim
MindanaoplacedatsomeP33billionin2019.
FromP65.9billionBARMMBudget,P43billionor66%isearmarkedforprojectsandprogramsof
the18ministriesandofficesoftheBangsamoroGovernment.AboutP20.2billionor47%isfor
PersonnelServices.MOOEgetsP14.4billionor33%ofthetotalbudget.CapitalOutlay’sshareis
P8.7billionor20%ofthetotalbudget.25
Table5.BlockGrantBudgetbyMinistry26
Ministry Allocation
1 MinistryofBasic,HigherandTechnicalEducation 19,056,935,766.67
2 OfficeoftheChiefMinister 7,922,849,141.76
3 MinistryofPublicWorks 4,089,426,542.06
4 MinistryofHealth 3,069,533,195.95
5 BangsamoroTransitionAuthority 2,591,131,798.60
6 MinistryofSocialServices 2,033,935,622.42
7 MinistryofInteriorandLocalGovernment 1,354,637,972.84
8 MinistryofAgriculture,FisheriesandAgrarianReform 986,810,707.87
9 MinistryofEnvironment,NaturalResources,andEnergy 460,483,910.78
10 MinistryofFinance 454,049,670.50
11 MinistryofTradeandInvestment 279,828,934.72
12 MinistryofTransportation 214,911,562.40
13 MinistryofLaborandEmployment 193,213,547.26
14 MinistryofScienceandTechnology 164,560,997.76
15 MinistryofIndigenousPeople’sAffairs 99,635,217.70
16 MinistryofHumanSettlement 94,935,427.50
17 BangsamoroHumanRightsCommission 92,262,398.36
18 MinistryofPublicOrderandSafety 86,808,855.58
19 OfficeoftheWali 27,809,726.07
Total 43,272,760,996.80
5. TheInternalRevenueAllotment(IRA)werereleasedTheIRAof11municipalitiesthatpreviouslydidnotreceivefinallygotperNoticeofCashAllocation
No.NCA-LGRCB-20-00018intheamountofP273,863,730.00tocovertheirfirstquarterbudget.
24Source:https://www.pna.gov.ph/articles/108772725op.cit.,AccessBangsamoro_2020-BARMM-Budget-Brief.pdf26Ibid.
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MPC IIBARMMTransitionMidterm ReviewII14
Thesemunicipalitiesare:DatuSalibo,DatuHoffer,Mangudadatu,Pandag,NorthernKabuntalan,
Datu Blah Sinsuat and Datu Anggal Midtimbang in Maguindanao; and Akbar, Al-Barka, Hadji
Muhtamad and Mohammad Ajul in Basilan. These municipalities expressed high level of
satisfactionwiththeperformanceoftheBARMM.MayorUmbraB.DilangalenofNorthernKabuntalanMunicipality,Maguindanaohadthistosay:27
Without the BOL and the BARMM, I do not know how our people will survive in thispandemic.NowthatwehavetheIRA,weareabletoimmediatelyprovidemedicalandreliefassistance, construct isolation facilities and distribute PPEs without having to beg forsubsidiesfromtheregionalgovernmentorsolicitfromnationalagencies.Before,wewereatthemercyoftheARMM.Ifyouareclosetotheleadershipyougetsubsidies.Ifyouarenotundertheirfavor,youhardlygetanything.
Another mayor shared similar opinion. Mayor Ibrahim Ballaho of theMuhammad Ajul
MunicipalityinBasilansaid:28
ThereleaseoftheIRAsignificantlyimprovedthemaintenanceofpeaceandorderandthe fastdeliveryofservices to thepeople.Weareable toprovidereliefandinstall an isolation center.Weare also able toprovide concrete support such asemploymentandlivelihoodtotheASGrebelreturneeswhoalreadysurrenderedtogovernment.Ourmunicipality isalsoprovidingsubsidiestotheUstadzeswhoarerunningtheMadrasah.Ourinterventionsherewillhelpwintheheartandmindsofyoungpeoplesothattheywillnotbeluredtoextremismandterrorism.
ThereleaseoftheIRAwasindeedawelcomedevelopmentbecausetheLGUscannowidentify
themselvesasco-equalwiththeotherLGUs. InthewordsofNorthernKabuntalanViceMayor
MaryJaneC.Bayan:29
Now that we have the IRA we can already claim that we are now a full-fledged localgovernmentunit.Wecantrulysayweareintoactualgovernance.Ifthereisaflashflood,weare able respond immediately. We have already funds for the street lights and roadmaintenance.Thebiggestchallengenowishowtotransformrevolutionarymindsettomoralgovernancemindset.Thisisaradicalshiftthatcannotbedoneovernight.Timeisveryshortforthetransition.IhopethiswillbeextendedsothattheBTAandMILFcanimplementthechangesthattheycommittedtodo.
6. TransferredfullpowersandpropertiesoftheAutonomousRegionalGovernmentinMuslimMindanaototheBangsamoroGovernment
On26February2019,theARMMthroughitsthenRegionalGovernorMujivHatamanwasofficially
turnedover to theBangsamoroTransitionAuthority (BTA) through its InterimChiefMinister
27InterviewwithMayorUmbraB.DilangalenoftheMunicipalityofNorthernKabuntalanMunicipality,MaguindanaoProvince,6August2020.28InterviewwithMayorIbrahimBallahooftheMuhammadAjulMunicipality,30September202029InterviewViceMayorMaryJaneC.BayanoftheMunicipalityofNorthernKabuntalanMunicipality,provinceofMaguindanao.
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MPC IIBARMMTransitionMidterm ReviewII15
AhodB. Ebrahim.Alongwith the turnoverof theARMMwas theARMMTransitionReport
composedof 34documentsdivided intonine (9) books. Thebooks summarizedpertinent
information from the thenARMMset-up, includingassets, liabilities, personnel andplans,
programs, and activities, lessons learned from
the ARMM experience; and options for thetransition to theBTA.The turnoverwasheldat
the Shariff Kabunsuan Cultural Complex in
CotabatoCity.Todate, therefore, the functions
oftheARMMhavebeentransferredtotheBTA,
including planning; programming; budgeting;
funds flow, management and utilization;
implementation arrangements of programs and
projects and overseas development assistance
(ODA) accessing; auditing; elections; and civil
service.
TheBOLmandatesthefulltransferofpowersandpropertiesoftheARMMtotheBangsamoro
Governmentexceptthoseproperties,land,andstructureslocatedoutsideoftheARMM.Theland
and permanent buildings or structures located outside the ARMM, owned, controlled,
administered, or in the possession of the Autonomous Regional Government in Muslim
Mindanao,shallbepurchasedbytheNationalGovernmentatapricetobedeterminedthrough
theintergovernmentalrelationsmechanismwithinone(1)yearfromratificationoftheBOL.Any
disputeonthepricemaybeappealedtotheOfficeofthePresidentwhichshalldecideonthe
pricewithfinalitywithinthree(3)monthsfromthereceiptoftheappeal.Theproceedsshallbe
remittedtotheBangsamoroGovernment.30
7. PrioritylegislationswerepartiallyenactedSection4(a),ArticleXVIoftheOrganicLawprovidesforthepriority legislationsfortheBTAto
enact.Asof September2020, the Cabinethas filed threedraft codes to theBTAParliament,
namely:AdministrativeCode,LocalgovernmentCode,andCivilServiceCode.TheEducationCode
is already approved by the Cabinet and it is ready for filing as soon as the Parliament will
convene.31TheElectoralCode isexpectedtobefiledbefore2020ends.Printedcopiesof the
RevenueCodeandElectoralCodearenotyetavailabletodateforpublicdissemination.TheMPs
interviewedwereoneinsayingthattheyhaveyettoreceivecopyoftheseremainingcodes.
• BangsamoroAdministrativeCode–On3August2020,theCommitteeonRulescreatedaPanel
fortheBangsamoroAdministrativeCodetofacilitateandexpeditepublicconsultationsCabinet
BillNo. 60 entitled “AnAct Providing for theBangsamoroAdministrativeCode and forOther
RelatedPurposes”whichwasfiledtotheBTAParliamenton22July2020.Theothertaskofthe
Panel istosubmitareporttotheCommitteeonRulesontheresultsoftheabove-mentioned
publicconsultations.32
30ArticleXVISection4(d)oftheBOL 31VirtualinterviewwithMPRasulMitbug,11August2020.32Ibid.MPMitmug.
Photocredit:https://bangsamoro.gov.ph/news/latest-
news/hataman-leads-turnover-ceremony-of-armm-to-
the-bta/
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MPC IIBARMMTransitionMidterm ReviewII16
Todate, thePanelhas conducted six (6) consultations:August14withprovincial LGUs in the
morningandwithCabinetmembers intheafternoon;17Augustwithexperts;19Augustwith
sub-unitsofministries;22Augustwithsub-unitsofMBHTEandMILG;and26Augustwithleagues
ofLGUsandotherLCEs.Aseparatepublicconsultationwassimilarlyheldwithvarioussectors
attended by religious, traditional leaders, fisherfolks, farmers, women and children, settler
communities,academe,professionals,business,labor,youth,andNMIPS.
Hailedasa landmark legislationthattookalmostayeartocomplete,theAdministrativeCode
“seeks to serve as a unified document that will incorporatemajor structural, functional and
procedural principles and rules of governance within the Bangsamoro Government.”33 The
Administrative Code is the foundation of all the codes; without it there is no bureaucratic
organization.34 The Code contains seven (7) Books comprising various chapters, titles, and
sections.TheIntroductoryProvisionsincludesSectionsonTitle,Purpose,DeclarationofPrinciples
andPolicies,andDefinitionofTerms.TheAdministrativeCodehas205pages.
BookI BangsamoroAutonomyandAdministrationBookII IntergovernmentalRelationsBookIII TheBangsamoroAutonomousGovernmentBookIV TheOfficeoftheChiefMinisterBookV GeneralFunctionsoftheCabinetBookVI MinistriesandOfficesBookVII GeneralProvisions
• BangsamoroLocalGovernmentCode --CabinetBillNo.58entitledAnActProviding for the
BangsamoroLocalGovernanceCodewasfiledtotheBTAParliamenton22July2020.TheCode
declared that “pursuant to the principles of moral governance, shall provide for a more
responsive and accountable local government structure instituted through a system of
decentralization whereby constituent local government units shall be given more powers,
authority,responsibilities,andresourcesinagradualandsystematicapproach.Theprocessof
decentralizationshallproceedfromtheBangsamororegionalgovernmenttoitsconstituentlocal
governmentunit.35TheCodecontains333pages,withthefollowingparts:
BookI GeneralProvisionsBookII LocalTaxationandFiscalMattersBookIII BangsamoroConstituentsUnitsBookIV MiscellaneousandFinalProvisions
33BTAParliamentBillNo.60.34VirtualinterviewwithMPAttyJoseLorena,17August2020.
35BangsamoroLocalGovernanceCode,BookI,TitleIBasicPrinciples,ChapterItheCode,PolicyandApplication,Section2.DeclarationofPolicy
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MPC IIBARMMTransitionMidterm ReviewII17
Oneof thesalient featuresof theLocalGovernanceCode is theanti-dynastyprovision,which
disqualifiesfromrunningforanyelectivelocalposition[TitleIIChapterVISection40],towit:
Thosewhoarerelatedwithinthesecondcivildegreeofconsanguinityoraffinitytoanyincumbentlocalofficialrunningforanelectivepositionaredisqualifiedtobecandidatesfor(i)anyprovincialelectivepositioninthesameprovince;(ii)anycityelectivepositioninthesamecity;(iii)anymunicipalpositioninthesamemunicipality;and(iv)anybarangayelectivepositioninthesamebarangay.
AttorneyNaguibSinarimbooftheMinistryofInteriorandLocalGovernmentsaidthattheanti-
dynastyprovisionhasaprobabilitytobeenactedintoalaw,giventhefactthattheGovernment
oftheDaywieldsthemajorityintheParliament.36ItisonlyintheBARMMthattheconstitutional
mandateunderSection26Article2categoricallyprohibitingpoliticaldynastywillfinallyfindan
enablinglegislationthroughtheLocalGovernanceCode.Thiswillbeamajorbreakthroughinthe
decades-long campaign to limit or ban political dynasties to prevent the concentration,
consolidationand/orperpetuationofpoliticalpowersinthehandsofonefamily.
• BangsamoroCivilServiceCode–CabinetBillNo.59wasalsofiledon22July2020entitledAn
ActProvidingfortheBangsamoroCivilServiceCodeoftheBangsamoroAutonomousRegionin
MuslinMindanao.TheintentoftheCodeistobeabletomanagethebureaucracywithutmost
professionalism and higher standards. The purpose of the Code is to provide an effective
instrumentforgoodgovernanceandresponsivepoliciesonhumanresourceadministrationof
the Bangsamoro Government by maintaining and/or improving existing national civil service
rules,regulationsandstandardswhileaddressingthe legitimateneedsandpeculiaritiesofthe
Bangsamoropeopleintheregion.37TheCodeiscontainedin109pagesandhasthefollowing
parts:
BookI PreliminaryTitleBookII QualificationsofNon-ElectivePositionsBookIII ConductofCivilServantsBookIV ProtectionofCivilServiceEligiblesBookV ProcedureonDisciplinaryActions
TransitoryProvisions
Intermsoftheorderofpriority,theCivilServiceCodetakesthesecondprimacy.Thisisbecause,
underthetransitionperiod,BARMMisoperatingwithonlyskeletalworkforce.Apartfromthis,
only50%areallowedtoreportforwork.Hence,thereisanurgentneedtofillthepositionsinthe
bureaucracy.Hiringhowevermustbecoveredbyameritsystem,thatis,itmustfollowtheCivil
Servicestandards.38
36InterviewwithAttorneyNaguibSinarimbo,CotabatoCity,27August2020.37Liftedfrom1stDraftBangsamoroCivilServiceCode2020.38loc.cit.,AttorneyJoseLorena.
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MPC IIBARMMTransitionMidterm ReviewII18
• BangsamoroEducationCode–theBARMM’sBangsamoroEducationsystemcoversallformal
andnon-formalsystemsofeducationinpublicandprivatelearninginstitutionsinalllevelsofthe
educationwhich shall be collectively referred to as the “BangsamoroEducation System. “The
draftingoftheCodewasnotaneasytaskbecausewehadtoincorporatetheBasicEducation,
HigherEducation,TechnicalEducationaltogether.TheCodealsoprovidesfortheestablishment
oftheBasicEducationundertheMadrasahSystemwhichisfirsttimeinhistory.Asofnow,what
wehaveareprivatelyrunMadrasahswhicharemostlynotaccredited. WiththeBangsamoro
EducationCode,theregionalgovernmentwillestablishpublicMadrasahsthatwillbehandled,
managedandoperatedbytheMinistry”39.SalientfeaturesoftheCodeincludePeaceEducation,
Indigenous Peoples Education Curriculum and the Islamic Subjects and Arabic Language
Curriculum.ItalsoprovidesfortheestablishmentoftheTribalUniversitySystem.
“The Tribal University System is a very welcome development for the non-Moroindigenouspeoples. Thiswillbea lasting legacyoftheBARMMnot just forthenon-MoroindigenouspeopleswithintheregionbutalsoforotherindigenouspeoplesalloverthecountrywhowillhavetheopportunitytostudyintheTribalUniversitySystem.Thiswillensurethepreservationanddevelopmentofourcultures,beliefanddistinctidentityasindigenouspeopleshandinhandwithourBangsamorobrethren.”40
Asof1August2020,acopyofthedraftcodeisalreadyavailable.Itiscontainedin51pageswith
thefollowingparts:
BookI GeneralProvisionsBookII TheEducationCommunityBookIII TheBangsamoroEducationSystemBookIV BasicEducationundertheSchoolSystemBookV BasicEducationundertheMadrasahSystem
BookVI AlternativeLearningSystemforBasicEducation
BookVII TechnicalEducationandSkillsDevelopment
BookVIII HigherEducation
BookIX HigherEducation
BookX IndigenousPeoplesEducation
BookXI PeaceEducation
BookXII EducationSystemAdministration
BookXIII MiscellaneousProvisions
• Bangsamoro Women Commission and Bangsamoro Youth Commission -- Under the Bangsamoro
AdministrativeCode(TitleXVI),achapterwasdevotedfortheBangsamoroWomenCommission.
Threesectionsareadded,i.e.mandate;organizationalstructure;and,itspowersandfunctions.
TheCommissionismandatedto“promote,protect,andupholdwomen’srightsashumanrights,
workfortheeliminationofallformsofdiscriminationagainstwomen,ensurethatlegalmeasures
39 Interview Dr. Rahib C. Kudto, Director General, MBHTE, September 25, 2020. 40 Interview Archie Buaya, Chairman, Confederated Descendants of Rajah Mamalu, September 9, 2020.
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MPC IIBARMMTransitionMidterm ReviewII19
are taken to promote gender justice, women’s rights and welfare, and promote gender and
developmentincludingthemeaningfulparticipationofwomeninalllevelsofgovernance,policy
anddecision-making”.41TheBangsamoroWomenCommission isattachedto theOfficeof the
ChiefMinister.42
AnotherchapteristheBangsamoroYouthCommission,likewise,anattachedagencyoftheOffice
of the Chief Minister. The Bangsamoro Youth Commission is the primary policy-making and
coordinatingbodyoftheBangsamoroGovernmentinallmattersaffectingtheyouth.Assuch,it
hastoensurethatallministries,agencies,offices,andotherinstrumentalitiesoftheBangsamoro
Governmentshallimplementthemandatedprograms,projects,andactivitiesaffectingtheyouth
oftheBARMM.43
9. Enactment of law to recognize, protect, promote and preserve the rights of indigenous
peoples
Oneof thepriority legislationswhichwaspromptly filedbefore theParliamenton23 January
2020wasBillNo.40entitled“AnActtoRecognize,Respect,Protect,PromoteandSupportthe
RightsoftheIndigenousPeoples,CreatingtheMinistryofIndigenousPeoplesAffairs,Establishing
theImplementingMechanisms,AppropriatingFundsThereforeandforOtherPurposes”.ThisBill
wasjointlyauthoredbyMelanioU.UlamaandRomeoC.Saligawhobothrepresentthenon-Moro
IndigenousPeoplesintheBTA.Onrecord,BillNo.40waspresentedonFirstReadingduringthe
31stSessionoftheParliamenton19February2020butuptonow,theBTAhasnotyettakenany
actionon theproposed legislativemeasure.Accordingly, BillNo. 40wasnot authoredby the
GovernmentoftheDaynorwasitcertifiedasanurgentBill.Thismaybeaplausiblefactorwhyit
hasnotgainedanytractionintheParliament.
MP Romeo Saliga said that it is only proper that the Bill was principally authored by the IP
representativesintheBTAtoensurethattherewillbeasenseofownershipoverthislegislative
measure among the indigenous peoples they represent. Whether it is sponsored by the
GovernmentoftheDaywillnotreallymatterforaslongastheleadershipwillgivethenecessary
technical,logisticalandpoliticalsupportforthepassageoftheIPlaw.Thisisnotonlythepriority
taskofthetwoIPrepresentativesintheBTAbuttotheentireBTAitself.44
BTAMemberAtty.Suharto“Teng”AmbolodtocommittedtocloselyworkedwithIPleadersand
civilsocietyorganizationsinthedraftingoftheIPLaw.“Thereisalotofopportunitiesthatwe
can introduceto improvethegoverning lawfor the IndigenousPeoples in theBARMM. Iwill
personallycommittoworkonthis.IfthereareproposalsfromtheIPadvocates,wewillhighly
welcomeandengagewiththem.”45
41Ibid.42BangsamoroAdministrativeCode,page17943Ibid.44InterviewwithBTAMemberRomeoSaliga,CotabatoCity,7August202045Interview,CotabatoCity,20August2020.
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MPC IIBARMMTransitionMidterm ReviewII20
Feedback coming from the focused group discussions revealed that there was much to be
improvedonBillNo.40.Thedraftingprocessfellshortofthedegreeandextentofcommunity
consultationsrequiredtobeabletodevelopconsensusonthecontentandprovisionsofthedraft
law.Thereisaneedtoconductseriesofmassive,participatory,andinclusiveconsultationson
eachandeverynon-Moro indigenous tribe like theTedurays,DulanganManobo,Lambangian,
ArumanenManobo,Blaan,Higaononandother indigenouspeopleswithintheBARMM.This is
crucialtoarriveatasconsensuswhoareconsideredastheindigenouspeoplesintheBARMMin
relationtothespecificreferenceofthenon-MoroIndigenousPeoplesintheBOL.
WhiletheIPCodehasyettobeenacted,aperusaloftheBangsamoroAdministrativeCodehas
given four pages that dealt on thematter of the IPswithin the BARMM. Title VII Indigenous
Peoples Affairs consists of three Chapters and 12 Sections. Chapter One deals on General
ProvisionsstipulatingDeclarationofPolicies,Mandate,PowersandFunctionsandOrganizational
Structure. Chapter Two describes the Office of the Minister, Powers and Functions of the
Minister,PowersandFunctionsoftheDeputyMinister,andtheBangsamoroDirector-General.
Chapter Three has sections on the Structure of the Ministry, the Office for Ancestral
Domains/NativeTitle, theSpecial PublicAssistanceand Legal AidOffice, and theCommunity
ServiceCenter.TheprovisionsprovidedintheBangsamoroAdministrativeCodeshallbethebases
forwhatever forthcoming legislationstobepromulgatedthatconcernthe IndigenousPeoples
withinthejurisdictionoftheBARMM.
10. At the Cabinet level, the Parliamentary districts for the first regular election for the
membersoftheParliamenthavebeendetermined
Determination of the parliamentary districts was already finished at the level of the Cabinet
Committee. The proposed parliamentary districts are incorporated in the Electoral Code
inasmuchasthesubjectmatterisanelectionsconcern.
TheBTAiscurrentlyrushingthedraftingoftheElectoralCodebecausethe2022electionsarefast
approaching.Registrationofpoliticalpartiesanddividingthepoliticaldistrictsareurgentasthese
couldtaketheentireyearof2021tocomplywith.IftheElectionCodeisnotenactedintolaw,
the national government through the COMELECmight intervenewhichmay essentially dilute
BARMM’sexerciseofautonomy.46
The Parliamentary Districts under Article IV-Bangsamoro Parliamentary District provides that:
“For the purpose of redistricting, parliamentary districts shall be apportioned based on the
populationandgeographicalarea:Provided,thateachdistrictshallcomprise,asfaraspracticable,
contiguous, compact, and adjacent territorial jurisdiction:Provided, further, that each district
shallhaveapopulationofatleastonehundredthousand(100,000).Basedonthislegalformula,
therewillbe32parliamentarydistrictsthatwillcomefromMaguindanao,LanaodelSur,Sulu,
Tawi-TawiandBasilanwithMaguindanaohavingthehighestnumberwith10districts,followed
byLanaodelSurwithnine(9)districts,asshowninTable6.
46loc.cit.,Lorena
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MPC IIBARMMTransitionMidterm ReviewII21
Majority Floor Leader Lanang Ali, Jr.47
explained the proposed redistricting of
parliamentarydistrictisyettobediscussed
intheParliament.Asofnow,itisstillatthe
leveloftheCabinetCommittee.Assoonas
it is filed, theElectoralCodetogetherwith
theproposeddistrictingwillbereferredto
theCommitteeonRulesfortheconductof
public hearings, which is in an essential
processoflegislation.
Theparliamentarydistrictingisdeemedimportanttobelegislatedassoonaspossiblebecauseof
theforthcomingelections.Dependingonhowfastandthoroughthepublicconsultationswould
be,theforecasthasitthatthedraftingoftheElectoralCodemaytakeoneyearandsixmonths.48
Moreover, it has repercussions to the selection of teachers and appointments in the
parliamentarydistricts,amongothers.Inshort,ithaspotentialpoliticaleffectsthatmakesitthe
moreurgenttohaveitlegislatedthesoonest.49
Forthelongesttime,theAutonomousRegionhashadthereputationofthe“cheatingcapitalfor
electionsinthecountry”.ThebattlecryoftheBangsamoropeopleistoovercomethissarcastic
tagonthem.HopesarehighthattheElectoralCodewillintroduceelectoralreformsthatgovern
thefutureelectionsintheregionthatarepeacefulandthepeopleareabletofreelyexpresstheir
choicesthroughtheballots.
ParliamentarydistrictswillbeembeddedintheElectoralCode.Frommanysectorsinandoutside
theAutonomousRegion,culturalsensitivityandknowledgeofthe localsituationarethetwin-
adviceontheapproachofthedistricting.Sincedistrictingconcernsaboutelections,andelections
areaboutpeople’svotes,wideconsultationsacrossallsectorsmustbedone.Districtingcanbe
highlypoliticized,soitiscrucialthatthelocals(localgovernments,localandreligiousleaders,civil
societygroups,etc.)areengagedactivelythroughouttheprocess.11. Turnedover 63barangays/newareas
oftheBangsamoro
Sixty-three barangays in North Cotabato
voted to join the Bangsamoro during the
plebisciteof theBangsamoroOrganic Law
on6February2019.On20November2019,
a ceremonial turnover was held where
NorthCotabatoActingGovernorEmmylou
Mendoza led the turnover of the 63
47loc.cit.,Ali,Jr48loc.cit.,Mawallil49loc.cit.,Mitmug
Photosource:https://bangsamoro.gov.ph/news/latest-news/63-barangays-of-northcot-now-officially-part-of-barmm/
Table6.NumberofDistrictsbyProvinceandPopulation
Province PopulationNumberofDistricts
Basilan 346,579 3Sulu 824,731 7Tawi-Tawi 360,328 3LanaodelSur 1,045,429 9Maguindanao 1,114,119 10
Total 32
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MPC IIBARMMTransitionMidterm ReviewII22
barangaystoChiefMinisterAhodBalawag
Ebrahim,asenumeratedinthetablebelow:
Table7.ListofSixty-threebarangaysfromNorthCotabatoturned-overtoBARMM
Aleosan 1Dunguan2Tapodoc
Carmen 3Manarapan4Nasapian5Kibayao6Ktulaan7Langogan8Pebpoloan9Tupig
Kabacan 10Nanga-an11Simbuhay12Sanggadong13Buluan14Pedtad15Simone16Tamped
Midsayap17Damatulan18Kadigasan19Kadingilan20Kapinpilan21Kudarangan22CentralLabas23Malingao24Mudseng25Nabalawag26Olandang27Sambulawan28Tugal29Tumbras
Pigcawayan30LowerBaguer31Balacayon32Buricain33DatuBinasing34Kadingilan35Matilac36Patot37LowerPangangkalan38DatuMantil39LibunganTorreta40UpperPangangkalan41Simsiman
Pikit
42Bagoinged43S.Balong,44SBalongis45Batulaawan46Buliok47Gokotan48Kabasalan49Lagunde50Macabual51Macasendeg52Barungis53Bualan54Bulol55FortPikit56Gli-gli57Manaulanan58Nabundas59Nalapaan60Nunguan61Pamalian62Panicupan63RajahMuda
PendingtheenactmentoftheLocalGovernanceCode,theBARMMhascreatedtheDevelopment
CoordinatingOfficewhichistaskedtoadministerthe63barangays.Thisofficewillprimarilybe
responsible for the planning and implementation of programs, projects, and activities of the
BARMMministriesandoffices intheNorthCotabatobarangays.However,these63Barangays
stilldonothaveadequatefundsyetandaredependentontheprogramsandprojectsthatwill
bechanneledtothembythedifferentMinistries.Thishastobeaddressedassoonaspossible
becausethebudgetthatthesebarangaysusedtoreceivefromtheProvinceofNorthCotabato
willdiscontinueanytime.50
12.ConstitutedtheIntergovernmentalRelationsBody(IGRB)
Mandate -- The Bangsamoro Organic law also provides an intergovernmental relations
mechanism,referredtoasIntergovernmentalRelationsBoard(IGRB)tasked“tocoordinateand
resolve issues on intergovernmental relations through regular consultation and continuing
negotiationinanon-adversarialmanner”51.Thelawfurtherstatesthatitshallexhaustallmeans
toresolveissuesbroughttothebody,andonlyunresolvedonesshallbeelevatedtothePresident,
throughtheChiefMinister.52
FunctionsofIGRB--ThefirstmeetingoftheIGRBtookplaceninemonthsaftertheinauguration
oftheBangsamoroAutonomousregion,heldatMarcoPoloHotelinDavaoCity,on16December
2019.ThisfirstmeetingresultedinthedeterminationoftheTermsofReferenceorfunctions(seeTable8fortheFunctionsofIGRB)andthecompositionofIGRB(seeTable8).
50InterviewwithMohammadKellieAntao,Administrator,DevelopmentCoordinatingOffice,31August202051ArticleVI-Section2IntergovernmentalRelationsMechanism,BOL52Ibid.
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MPC IIBARMMTransitionMidterm ReviewII23
Table8.FunctionsofIGRB53• Coordinateandresolveissuesrelatingtoorarisingoutofthedelineation,devolution,
demarcation,andsharingpowers,jurisdiction,andcompetenciesoftheNationalGovernmentandtheBangsamoroGovernment,andtheirdepartments,ministries,agencies,andinstrumentalities;
• CoordinateandresolveissuesrelatingtoorarisingoutoftheimplementationofnationalprogramsandprojectsoftheNationalGovernmentintheBARMM;
• CoordinateandresolveterritorialissuesinvolvingtheNationalGovernment,theBangsamoroGovernment,anditsadjacentlocalgovernmentunits;
• CoordinateandresolveallotherissuesnotcoveredbytheotherintergovernmentalrelationsmechanismsonintergovernmentalrelationsbetweenthenationalGovernmentandtheBangsamoroGovernment;
• OperationalizetheotherintergovernmentalrelationsmechanismenumeratedundertheBOL
• Resolveissuesinvolvingintergovernmentalrelationsmechanisms;and,• PerformsuchotherfunctionsmandatedbytheBOLasmutuallyagreeduponbythe
NationalGovernmentandtheBangsamoroGovernmenttoensurethesmoothandeffectiveresolutionofissuesonintergovernmentalrelations.
Composition--TheIGRBNationalGovernmentisrepresentedbyDepartmentofFinanceSecretary
Carlos Dominguez and for the Bangsamoro Government by BARMM Education Minister
Mohagher Iqbal. TheOfficeof thePresidentialAdviseron thePeaceProcess serves the joint
secretariatoftheIGRB.
Table9.CompositionofIntergovernmentalRelationsBoard(IGRB)BARMM NationalGovernment1) Co-chair:EducationMinisterMohagherIqbal 1) Co-chair:FinanceSecretaryCarlosDominguezIII2) BangsamoroParliamentSpeakerAliPangalian
Balindong2) PresidentialAdviseronPeace,Reconciliation,and
UnityCarlitoGalvezJr3) ExecutiveSecretaryAbdulraofMacacua 3) SocioeconomicPlanningSecretaryErnestoPernia4) CabinetSecretaryMohammadAsninPendatun 4) InteriorSecretaryEduardoAño5) InteriorandLocalGovernmentMinisterNaguib
Sinarimbo5)DefenseSecretaryDelfinLorenzana
6) PublicWorksMinisterEduardGuerra 6)PublicWorksSecretaryMarkVillar7) SocialServicesMinisterRaissaJajurie 7)EnergySecretaryAlfonsoCusi8) Agriculture,Fisheries,andAgrarianReformMinister
MohammadYacobFisheries8)AgricultureSecretaryWilliamDar
9) TransportationandCommunicationsMinisterDicksonHermoso
9)TransportationSecretaryArthurTugade
10) RepresentativeoftheMinistryofEnvironment,NaturalResources,andEnergy(tobenamed)
10)CabinetSecretaryKarloNograles
Meetings–Regularmeetingsisonceinevery90days,tobealternatelyheldinMetroManilaand
CotabatoCity,orinanyotherlocationinthePhilippinesasagreedbytheIGRB.Specialmeetings
may be conducted for actions and issues that require immediate attention. As necessary,
resourcepersonsmaybeinvitedasmutuallyagreeduponbytheCo-Chairs.TheIGRBmayrefer
53PowerpointPresentationofJointSecretariatCo-HeadAtty.ShaElijahB.Dumama-AlbaduringthePeaceConversationsfortheBangsamoro:WebinarontheUpdatesontheGPH-MILFPeaceProcess,on23September2020,viazoomvideoteleconferenceandlivestreamingattheOPAPPFacebook.
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MPC IIBARMMTransitionMidterm ReviewII24
amattertoanyintergovernmentalrelationsmechanismforresolution.Ifunresolved,suchshall
beelevatedtotheIGRBfordeliberation.TheIGRJointSecretariatmeetsregularlyonce.Meetings
heldsofar:16December2019;29May2020;and28August2020.Nextmeetingisscheduledon
9October2020.
13.StatusofotherInter-GovernmentalBodies
ThefollowingaretheotherIGRBodiesandtheirstatus:
• Philippine Congress-Bangsamoro Parliament Forum (PCBF) – created for the purpose ofcooperationandcooperationoflegislativeinitiatives.54PCBFisyettoconvene.55
• IntergovernmentalFiscalPolicyBoard(IFPB)–itsfunctionistoaddressrevenueimbalancesandfluctuationsinregionalfinancialneedsandrevenue-raisingcapacityoftheBangsamoro
Government.56TheBoardmetforthefirsttimeon29May2020viavideoteleconference.
The IFPB TORs were jointly signed by the National Government and Bangsamoro
Government.57
• IntergovernmentalInfrastructureDevelopmentBoard(IIDB)–itisprimarilyresponsibleforcoordinating and synchronizing national and Bangsamoro infrastructure development
plans.58Todate,theDPWHandtheMPW-BARMMarecurrentlyundertakingthenecessary
preparationsfortheconveningoftheIIDBinOctober202059.
• IntergovernmentalEnergyBoard(IEB)–itstaskistoresolveallmattersrelatedtoenergyasspecified in Section36,Article XIII and Section7,ArticleVI of theOrganic Lawandother
energyissuesreferredtoitbytheIntergovernmentalRelationsBody.60
• JoinBodyfortheZonesofJointCooperation(JBZIC)–itisresponsibleforformulatingpoliciesrelatingtotheZonesofJointCooperationintheSuluSeaandMoroGulf.61Itsfirstmeeting
washeldon26June2020viavideoteleconferencewhereinthedetailsoftheTORsofthe
JBZJCand itsJointSecretariatwerediscussed.Todate,theTORsoftheJBZJCand itsJoint
Secretariatarebeingfinalized.AsmandatedbytheBOL(Section18,ArticleXIII),anAdHoc
JointBodyiscurrentlyworkingonthedelineationoftheZonesofJointCooperation.62
• BangsamoroSustainableDevelopmentBoard(BSDB)–TheParliamentismandatedtocreatetheBoardcomposedofrepresentativesfromtheNationalGovernmentandtheBangsamoro
Government.Itsfunctionistoensuretheintegrationandharmonizationofeconomic,social,
andenvironmentalconsiderationsasvitaldimensionsofsustainabledevelopmentpolicyand
practiceintheBangsamoroAutonomousRegion.63Todate,theBSDBisyettobecreatedby
legislationoftheBangsamoroParliament.64
• Council of Leaders – it shall advise the Chief Ministers on matters of governance in theBangsamoroAutonomousRegion.ItiscomposedoftheChiefMinisterasheadoftheCouncil;
54Section3,LawArticleVIoftheBOL55loc.cit.,PowerpointPresentation56op.cit.,Section457opcit.powerpointpresentation58loc.cit.,Section659op.cit.,PowerpointPresentation60op.cit.,Section761Ibid.,Section562loc.cit.,PowerpointPresentation63op.cit.,Section864op.cit.,PowerpointPresentation
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MPC IIBARMMTransitionMidterm ReviewII25
members of the Congress of the Philippines from the Bangsamoro Autonomous Region;
representatives of traditional leaders, non-Moro indigenous communities outside of the
Bangsamoro communities outside of the Bangsamoro Autonomous Region; and
representativesofothersectors.65Todate,theChiefMinisterisyettoconvenetheCouncil
ofLeaders.
InaninterviewwithCongressmanMunirArbison,hesaidthathelooksforwardtotheconvening
of the Council of Leaders and the Philippine Congress-Bangsamoro Parliament, so that the
politicalleaderswillbeabletosuggestandhelpinthetransition.Hisentirestatement:66
Thechangesarenotonlyconfinedattheregionalgovernmentlevel.Therealchallengeisattheprovincialandmunicipallevelswheregovernanceneedtodramaticallyimproved.Forinstance,inSulu,theBARMMshouldkeenlymonitortheperformanceofthelocalchiefexecutives and make sure that they will adopt to the changes. The leadership of theBARMMshould look at the justice systemand ruleof lawandmake sure that thiswillgreatly improveduringtheirterm.BARMMshouldhelpcleanupthejusticesystemandweedoutcorruptprosecutors, judgesandpolice.Iftheycannotdothis,wecanalreadyforeseewhatwillhappentotheBARMM.Itwilljustbearepeatofhistory.
Per report obtained, the Bangsamoro Government has already constituted the following IGR
bodies67o IntergovernmentalRelationsBody(IGRB)o IntergovernmentalFiscalPolicyBoard(IFPB)o IntergovernmentalInfrastructureDevelopmentBoard(IIDB)o IntergovernmentalEnergyBoard(IEB)o JointBodyforZonesofJointCooperation(JBZJC)
14.Othersignificantaccomplishments
• Shownself-relianceincombatingthepandemic,i.e.Corona19Virus
Barely a year from its establishment, BARMM has proven to be a self-reliant partner of the
NationalGovernmentinthefightagainstthevirus.ChiefimplementeroftheNationalActionPlan
againstCovid-19CarlitoGalvezJr.saidthenewly-formedautonomousregionquicklyresponded
to thecountry’sbattleagainst theCovid-19pandemic,noting that thecases in the regionare
comparatively low. Despite being geographically far from the National Government the
BangsamoroGovernmenthasbeenself-reliantindoinggreatwithitsbattleagainstCovid-19with
minimumtalliedcases.68AsofSeptember11,2020,thetotalconfirmedcasesare778with23
deaths,555recoveredand200activecases.Ofthe200activecases,46areadmittedwhile154
areinquarantinefacilities.69
65Section9,LawArticleVIoftheBOL966InterviewCongressmanMunirArbison,SuluDistrict2Representative,HouseofCongress.7September2020.67AccomplishmentReportfromtheCabinetSecretary,OfficeoftheChiefMinister,entitled“SignificantAccomplishmentsoftheBARMMMarch2019toJuly2020.”68MinutesoftheMeetingoftheInter-AgencyTaskForcewiththeBARMM.69BangsamoroInter-AgencyTaskForceonCovid19ReportasofSeptember11,2020.
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MPC IIBARMMTransitionMidterm ReviewII26
• Financialsupporttofrontlineworkers
TosupportBARMM’sfrontlineworkers,theBangsamoroGovernmenthasallocatedtheamount
ofP1,918,782,295.0070,earmarkedforaugmentationofmedicalequipmentandsupplies,hazard
payforhealthworkers,medicalassistanceforCOVID19patientsthroughAyudangMedikalMula
saBangsamoroGovernment(AMBAG),andfinancialassistanceforinfectedfrontlineworkers.As
of30May2020,theBangsamoroGovernmenthasprovidedatleastP44.461million71worthof
medicalsuppliesthatweredistributedstrategicallytothedifferentprovincesoftheregion.
• Providedstrategicreliefoperations
Asof30June2020,theBangsamoroGovernmenthasbeenabletoprovide433,161foodpacks
and relief goods to its target beneficiaries. Food packs, which contained rice, canned goods,
coffee,instantnoodlesthatwouldlastforonetotwoweeks,weregiventotheaffectedfamilies
particularlythemostvulnerablesectors--seniorcitizens,personsunderinvestigation(PUIs)and
personsundermonitoring (PUMs)andthosewhose livelihoodwereextremelyaffectedbythe
implementation of community quarantines. The province’s pertinent offices ofMSS, BARMM
READi (orRapid EmergencyActiononDisaster Incidence), andMILG/LGUs took chargeof the
distributionoutsideCotabatoCity.
• AllottedaugmentationfundforLGUs
TheBangsamoroGovernment,throughtheOfficeoftheChiefMinister(OCM-BARMM),atotalof
₱155millionwasallottedtotheLocalGovernmentUnits(LGUs)allovertheBangsamororegion
inordertointensifytheireffortsincontainingthespreadofCOVID-19.EachprovincereceivedP5
millionwhileeachcitygotP2million,andeachmunicipalityreceivedP1million.TheremainingP8
millionwenttothe63barangayswhichwereturnedoverfromNorthCotabatotoBARMM.
• EnhancedtestingcapacityforCovid19
TheOfficeoftheChiefMinistersignedMemorandum
ofAgreementswiththeCotabatoRegionalandMedical
Center (CotabatoCity) and theAmaiPakPakMedical
Center (Marawi City) for the hospitals’ needed
laboratoryupgradeforRT-PCRTestworthP14million
and P5 million, respectively. Both hospitals are now
conductingPCR-TestforCOVID19.
• IsolationcentersforCovid19wereconstructed
A100-bedcapacityisolationbuildingforCovid19were
constructed.InCotabatoSanitariumHospitalthe100-
bed isolation facility was completed in just 40 days.
Also completed was the construction of isolation
facility inDatuBlahDistrictHospital.Groundbreaking
70loc.cit.,AccomplishmentReport71Ibid.,AccomplishmentReport
FromfocusgroupdiscussionsconductedinDatuPiang(Maguindanao)andPikit(NorthCotabato),herearesomequotes(looselytranslatedtoEnglish)fromtheparticipantsontheassistancetheyreceived:“Verymuchimprovedthanwhatwe
usedtoreceivewhenwewerebakwits.”
“Ourreliefpackisverygenerousandcan
reallyfeedourfamilies”.
“Asveteranbakwits,wewereusedtothe
sparserationofsardines,noodlesand
fivekilosofrice.Now,yougetcontented
becausereliefgoodsarereallyrelief
goods.”
“Wereceived10kilosupto25kilosgood
qualityrice,cornedbeef,chickenloaf,
tunaflakes,eggs,andvegetables.We
alsoreceivedsoap,alcoholandface
masks,coffee,andsugar.”
“Withtheadequatereliefgoodsreceived
onecannowopenasari-saristore.”
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MPC IIBARMMTransitionMidterm ReviewII27
ceremonies were held for the isolation facilities in
Basilan,Sulu,Tawi-TawiandLanaodelSur.
• ImplementedSocialAmeliorationProgram
The SAP Social Amelioration Program (SAP) benefits were directly distributed to 506,954
beneficiariesintheregion.Outofthisnumber,325,975are4Psmemberswhile180,979arenot.
• Madehealthservicesaccessible
Ayudang Medika Mula sa Bangsamoro Government, popularly known as AMBAG, has two-
prongedpurposes;onetoprovidemedicalassistancetoindigentandpoorBangsamororesidents,
andsecondtoenhancetheaccessibilityofhealthservices,medicines,andmedicalproceduresto
itsconstituents.Asof30July2020,theAMBAGhasprovidedmedicalassistanceto5,799patients
through its 10 partner hospitals. The BARMM has recently entered into a Memorandum of
Agreement (MOA)with Southern Philippines Medical Center (SPMC) to cover not only Moro
patientsbutalsoindigenousandChristianswhoneedthemedicalservices.
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MPC IIBARMMTransitionMidterm ReviewII28
TransitionIssuesandChallenges
1. UnderstandingthecontextandcomplexityoftransitionfromARMMtoBARMM
A closer lookat the tasks anddemandsof the transition from theARMMto theBangsamoro
Governmentwillshowthatitessentiallyencompassestwostages.One,transitionfromtheARMM
totheBTA.And,two,transitionfromtheBTAtotheBangsamoroGovernment.AsofthisMidterm
Review,thefirststageofthetransitionisalreadyaccomplishedwiththefullturnoverofpowers,
functions,properties,assetsandrecordsoftheARMMtotheBTAthroughtheOfficeoftheChief
Minister.
The second stage of transition from the BTA to the Bangsamoro Government is muchmore
challenging and complex as it necessitates the establishment of a parliamentary form of
government.On this score, bothNationalGovernment andBangsamoroareembarkingonan
uncharteredpoliticalexperimentationwhichisladenwithmorequestionsthananswers.
BTAMemberAbduraofMakakua indicated theneed towiden theunderstandingandadopta
deeper meaning of transition to include how to change the mindsets as mujiahideens to
governmentbureaucratsorsittingmembersoftheParliament.QuotingMPMakakua:72
BecausethetransitionwearereferringhereisnotonlyachangeofARMMtoBARMM.Thisisnotajustchangeofanemployeetoanother.Thethingthattheymustunderstandisthemind setting of the people. Firstly, we were trained for 40 years to fight against thegovernment.Weweretrainedtoseeonlytheworstofthegovernment.Ourtrainingfor40yearswas on how to defeat government. Nowwe arewith government.We joined thegovernmentinordertostoptheatrocitiesinMindanao.OurintentionitstoptherecurrenceofviolenceinMindanao.WeseethatifwejointhegovernmentthereisnomorejustificationfortheextremistgroupstocometoMindanao.Onourside,itistoletthepeopleseeourdesireforself-determination.Meaningtosay,wejoinedthegovernmentwithoutknowingwhatgovernanceis.ImyselfdonotknowhowtousetheMOOEinmyoffice.ThatiswhyIaminvitingeveryonetohaveadeeperunderstandingofwhattransitionisandthecontextwhyweareallhere.
Intermsofcontext,itiscriticaltomentionthatthetransitioniscloselyanddirectlylinkedtothe
normalizationprocess.QuotingMinisterMohagherIqbal:73Thesearetwosidesofthesamecoin.ThePoliticalandNormalizationtracksareintertwined.Onecannotproceedwithouttheother.
Forexample,Phase3oftheTransitionPeriodprovidesthat35%ofthe40,000MILFcombatants
shall be decommissioned from the ratification of the BOL up to the establishment and
72InterviewwithMinisterAbdulraofA.Macacua,BTAMemberandExecutiveSecretary,OfficeoftheChiefMinister,CotabatoCity,9August2020.73InterviewwithMinisterMohagherM.Iqbal,BTAMember,CotabatoCity,25September2020.
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MPC IIBARMMTransitionMidterm ReviewII29
operationalizationofthepoliceforcefortheBangsamoro.Sincetheproposalonpolicingwasnot
approvedbyCongressduringtheBOLdeliberation,theenvisionedBangsamoroPoliceForcedid
notmaterialize.What isprovided is theentryofMILFandMNLFmembers into thePhilippine
National Police with specific affirmative action with regards to age, height and educational
attainment.However,aperusalofthepertinentprovisionunderArticleXISection2willshowthat
itissilentonthespecificnumberofMILFandMNLFmembersthatwillbehiredinthePNP.Upto
thisMidtermReview,thematterhasnotyetbeenimplementedbytheparties,asspecificissues
willhavetobeagreedandsettledattheleveloftheIGRB.
Chairman Al Haj Murad Ebrahim expressed that the main challenge in the transition is the
transformation of MILF from a revolutionary organization to leading the BTA as interimgovernment.Hesaid:74
Thistransitionrequiresustotransformindividuallyandorganizationally.ThesecondchallengeisthetransformationofthestructureofthegovernmentfromtheARMMwhichispatternedafterpresidentialunitaryformofgovernmentintoaparliamentaryministerialform.So,withthesetwochallenges,itwillreallytaketimeforustoachievebecauseitcannotbedoneovernight.Ontheotherhand,wealsoseethatwhiledoingthetransformationwealsoneedtoperformasagovernmentbecauseifwewillnotperformthenthepossibleeffectwillbewewillhaveahardtimein 2022 because wemight not be able to present our accomplishments in the transition. Thistransitionisaveryshortperiodoftime.Ouroriginaldemandwassixyearsbutwecompromisedtothreeyears.Weagreedonthethreeyears.Wewillseewhatwecando.
2. Challengesaccompanyingthetransferofpowersandproperties
AsofFebruary26,2019,theARMMalreadyturnedoverpowers,functions,offices,properties,
personnel and assets to the BTA while the turnover of the regional offices by the national
governmentisstillsaddledwithdifficultiesonthedetails.
• TransferofpowerfromARMMtoBARRMlegallydeficientTheBOL requires also that an inter-agency committeeheadedby theOfficeof thePresident,
composedoftheDepartmentofBudgetandManagement,CommissiononAudit,andCivilService
Commission,shallconducttherequisiteinventorytoensurethattheliabilitiesoftheAutonomous
RegionalGovernmentinMuslimMindanaounderlaws,contracts,orobligationsshallbeassumed
bytheNationalGovernmentpriortothetransferofpowers,functions,assets,capital,records,
funds,receivables,equipment,andfacilitiesoftheAutonomousRegionalGovernmentinMuslim
MindanaototheBTA.Forthispurpose,asummaryreportonthestatusoftheARMM,asofthe
date of the ratification of the BOL, including information on the status of the devolution,
personnel,properties,andassetsoftheARMM,shallbeturnedovertotheBTA.75Thewisdom
behindArticleXVISection10istoguaranteethattheBTAwillstartwithacleanslateasitisnot
obligedtoinherittheliabilitiesandobligationsofthedefunctARMM.
74InterviewwithChairmanAlHajMuradEbrahim,CotabatoCity,10August202075loc.cit.,Section10.
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MPC IIBARMMTransitionMidterm ReviewII30
• NointeragencycommitteewasformedTherequired inter-agencycommitteewasnotmaterialized.76Therewasnorequisite inventory
thatwasconductedinordertoensuretheliabilitiesunderlaws,contracts,orobligationstobe
assumed by the National Government. In fact, in Book 1 of the ARMM Transition Report
categoricallystatedthatthefiguredidnotincludethetotalaccountspayabletovariouscreditors,
such as contractors and suppliers, as well as, project Memoranda of Agreements with Local
Government Units.77 The liabilities as stated in the ARMM Transition Report referred to the
unremitted premiums and employment loans to the Government Service Insurance System,
HomeDevelopmentMutualFund,PhilippineHealthInsuranceCorporation.
TheARMMTransitionReportstatedthatthetotalassetsincludeland;building;machineryand
equipment; transportation equipment; and furniture, fixtures and bookswith a total carrying
amount of P20,883,162,742. The value of the land P18,527,331,573, excluding that of the
CommissionofHigherEducation’s(CHED)sizeabletractsoflandinLanaodelSur,Maguindanao,
and Sulu. Also excluded are all the ARMM-SPDA projects and the Cabatangan property in
ZamboangaCity.The ARMMTransitionReportalsomentionedthatnotallparcelsof landare
coveredbyusufructsanddeedofdonations,particularlythoseassetsthatpredatesthecreation
oftheARMM.78
TheCOA–BARMMconfirmedinaninterviewthattherewas,indeed,nointer-agencycommittee
formedtoconducttheinventory,asrequiredunderArticleXVISection10oftheBOL.79On27
September2019,theCOAofficiallytransmitteditsConsolidatedAnnualAuditReport(CAAR)on
theAutonomousRegionalGovernmentforCY2018toInterimChiefMinisterEbrahim.Allassets
and liabilities, as stated in the CAAR are recorded in the current books of the Bangsamoro
Government. Itwillbeworthwhiletoreviewthesefinancialaccounts inthe lightoftheclear
provisionsoftheBOL.
• PurchaseofrealpropertieslocatedoutsideoftheARMMhasyettobematerializedAnessentialpartinthefulltransferofpowersandpropertiesoftheARMMtotheBangsamoro
GovernmentisthepurchasebytheNationalGovernmentofthelandandpermanentbuildingsor
structures located outside the ARMM. These properties are either owned, controlled,
administered,orinpossessionoftheARMM.TheBangsamorogovernmentintendstoconductan
inventoryofthesepropertiesandtorequestforanofferpricefromtheNationalGovernment.80
Under the BOL these real properties will be purchased by the National Government and the
proceedsthereoftobeturnedovertotheBARMM.ThisisoneprovisionintheBOLthatisawaiting
implementation.
76op.cit.,Lorena.77ARMMTransitionReport,Book1MainReport,p13978Ibid.,p13879InterviewwithMr.AntonioS.GepteVIII,StateAuditorIII,CommissiononAudit-BARMM,26August202080InterviewwithAttorneyGeneralElijahB.Dumama-Alba
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MPC IIBARMMTransitionMidterm ReviewII31
• CotabatoCityhasyettobeturnedtotheBangsamoroGovernmentUnder the BOL, the establishment of the Bangsamoro Autonomous Government and the
determinationoftheterritorialjurisdictionshalltakeeffectupontheratificationoftheOrganic
Lawbythemajorityvotescast inaplebiscite.Theresultsof the21January2019plebiscite in
CotabatoCityshowedaYESvotesof36,682overtheNOvotesof24,994.81On25January2019,
theNationalPlebisciteBoardofCanvassersproclaimedthatCotabatoCityshallformpartofthe
BangsamoroAutonomousRegioninMuslimMindanao.However,tothisdate,CotabatoCityhas
yettosubmititselftotheadministrativejurisdictionoftheBangsamoroGovernment.
On7February2020,CotabatoCityMayorAtty.CynthiaGuiani-Sayadisentaneight-pagepetition
lettertoPresidentRodrigoDutertetoholdinabeyancetheturnoverofCotabatoCitytoBARMM.
Inthepetition letter, themayorappealedforastatusquountilsuchtimethatthethree-year
transition period has been completed and the BARMM bureaucracy would have been fully
operational.82 If the petition is approved itwouldmean the exclusion of Cotabato City from
BARMMuntil30June2022.ThismatterisalreadyinthehandsofPresidentDutertewhocalled
Mayor Guiani-Sayadi, Minister Iqbal, other BARMM officials, and Cabinet Secretaries on 4
February2020inMalacañangtodiscusstheissue.Accordingly,theDILGwasalreadyinstructed
bytheOfficeofthePresidenttocompletetheturnoverbyDecember2020.
Todate,theBARMMiswaitingfortheDILGtoturnoveritsregionalofficeinCotabatoCitytothe
BARMMsothatitcanalreadysuperviseandregulateCotabatoCity.AsearlyasJanuary25,2019,
upontheproclamationbyComelecthattheaffirmativevotewoninthePlebiscite,CotabatoCity
hasbeenpartoftheBARMM.TheMILG,however,couldnotyetexercise itspowerofgeneral
supervisionyetbecausetheDILGhasnotyetturnedoveritsregionalofficetotheMILG83.
Formanyobservers,itbogglestheirmindshowtheCityMayorofCotabatocanberecalcitrant,
openlydefythelaw,disobeytheorderoftheCOMELEC,andrefusetorespectthesovereignwill
oftheelectorate.
• TransferofnationalagencieslocatedinCotabatoCityhasyettoberealizedSection 11 of Article XVI provides for the disposition of personnel and assets of national
governmentagencieswhosemandateandfunctionsarealreadytransferredtoornowvestedin
theBARMM.Specificallycoveredwiththislegalprovisionaretheregionalofficesofthefollowing:
1 Department of Agriculture and Bureau of Fisheries and Aquatic Resources, National
FoodAuthority,NationalIrrigationAuthority,PhilippineCoconutAuthority2 DepartmentofAgrarianReformanditsAdjudicationBoard3 Department of Education – 19 Higher Education Institutions, Cotabato City Division
Office,Supervisionof2StateUniversityandColleges4 DILGOfficeinCotabatoCity
81NPBOCResolutionNo.01-19datedJanuary25,201982https://www.mindanews.com/peace-process/2020/02/cotabato-city-seeks-exclusion-from-barmm-until-june-30-2022/83Ibid.
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MPC IIBARMMTransitionMidterm ReviewII32
5 DepartmentofLaborandEmployment(BureauofLaborRelationsandStandards,POEA,OWWA,NLRC)
6 Department of Public Works and Highways particularly the Cotabato City DistrictEngineeringOffice.
7 DepartmentofScienceandTechnologyparticularlyitsResearchCenters,ResearchandDevelopmentactivitiesintheLigawasanMarsh,SeaweedResearchandDevelopmentCenteratMSU-Tawi-Tawi)
8 DepartmentofTradeandIndustry,DepartmentofTourism,CooperativeDevelopmentAuthorityandBoardofInvestments
9 Department of Transportation, LTFRB, LTO, National Telecommunications, CAAP(AwangAirport,Jolo,SuluAirportandSanga-SangaAirportinTawi-Tawi,MARINA)
AsofthisRapidMidtermReview,theaboveofficesarenotyetfullytransferredtotheBARMM.
Similarly, the properties and assets, which are mandated to be transferred within three (3)
monthsfromtheorganizationoftheBTA,hasnotyetbeendone.
TheIntergovernmentalRelationsBoard(IGRB)alreadyconvenedasaTechnicalWorkingGroup
(TWG)andhashadapreliminarydiscussionontheupdateofthelistoftheNationalGovernment
assetsidentifiedtobetransferredtotheBangsamoroandthetypeoflegalinstrumenttoeffect
thetransfer.ThelistoftheNationalGovernmentagencieswithofficesinCotabatoCityandinthe
63barangaysinNorthCotabatowhicharetobetransferredtotheBangsamoroGovernmentwas
alreadysubmittedtotheOfficeofthePresidentialAdviseronthePeaceProcess(OPAPP).The
TWGwasexpectingfortheTransitionTeamtobeorganizedbeforethemonthofSeptember2020.
• PhasingoutofARMMpersonnelandoffices:wasitgradualorabrupt?Asmentionedearlier,thephaseoutoftheARMMpersonneltookplaceinOctoberuntilDecember
2019. More than 6,00084 of the defunct ARMM employees whose positions were no longer
extendedwereaffectedbythephaseoutprogram.
BasedonthedatestheNCAswerereleased,itcanbesaidthatthemajorityoftheemployeeswho
werephasedoutreceivedtheirseparationincentivesonlyin2020.Itcanbeassumedfurtherthat
only the first batch (October) of the retrenched ARMM employees received their separation
incentiveswhiletheremainingtwobatches(NovemberandDecember)receivedtheirwithinthe
monthsofFebruarytoAugust2020.
AkramLatiphhadthistosay:85
SomeretrenchedARMMpersonneldidnotreceivetheirseparationpay.Whatshouldhavebeendonewasnottoretrenchunlesstheseparationpayisavailableandgivenrightthereandthen.ThishascausedmisgivingstoalotofARMMpersonnel.
TheOrganicLawspecificallystatedthatthephaseoutwillbegradual.However,therearevarying
interpretationsoftheterm“gradual”phaseout.WhilebasicallyitwaslefttotheGovernmentof
84NotethatitweretheprintmediathatprovidedthisnumberofARMMpersonnelaffectedbythephaseout.TheBARMM-OfficeoftheAttorneyGeneralprovidedalesserfigureof3,899,whichcanbeassumedastheemployeeswithplantillapositions,attheexclusionofothertypesofemployment.85VirtualinterviewwithAcramLatiph,PhD.,ResearchCoordinatorandAssociateprofessorinEconomics,MindanaoStateUniversity,24August2020.
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MPC IIBARMMTransitionMidterm ReviewII33
theDaytoimplementthephaseoutoftheARMMemployeesaccordingtowhatwasstipulatedin
the BTA approved Enhanced Transition Plan, questions now arise whether it was a gradual
phaseout of the ARMM offices and personnel that took place in the months of October to
December2020.
The interpretation of gradual phaseout depends on whose perspective. BTA Members Rasul
MitjmugandAmirMawallilsharedthesameopinionthatthegradualphaseoutdidnotnecessarily
meanashortperiodofthreemonths(OctobertoDecember2019)butathree-yeartimeframe
withinthethree-yeartransitionperiod(March2019toJune2022).
BTAMemberMitmugsaid:86
Iwashopingitwouldnotbedoneina“onetime,bigtime”manner.That it [phaseout]couldhavebeendonebyphases,batchesorbyoffices.Forme,theprocesswasnotwhatthelawenvisioned.Peopleonthegroundwerethemostaffected.Bythetimethephaseoutwascompletedtherewere nomore personnel to continue the delivery of services. LGUs complained.While attempts to hire and rehire thru contract of service and consultants so that thedeliveryofservicesiscontinued,thehiringprocessgotcomplicatedandcompoundedbytheeffectsoftheCorona19viruspandemic.
AnotherBTAMember,EngineerBaintanAdil-Ampatuanechoedherreservationoverthematter
ofphasingoutof theARMMoffices.Shesaidthatwhile itwaswritten intheBOLthegradual
phasingoutoftheoffices,whattookplacewasnotinaccordancewiththelaw.Sheadded,“the
phasingoutoftheofficescouldhavebeendonegradually.Whatwasputinplace,however,was
everything to