By BONG D. FABE
ON March 27, 2014, the whole world joined the Philippines in rejoicing over the signing of the Comprehensive Agreement on the Bangsamoro (CAB), the final peace agreement entered into by the Government of the Republic of the Philippines (GPH) and the Moro Islamic Liberation Front (MILF).
The signing of the CAB, witnessed by dignitaries from all over the world, paved the way for the drafting of the (now controversial) Bangsamoro Basic Law (BBL), a piece of legislation that will implement the CAB and the Framework Agreement on the Bangsamoro (FAB) that was signed in October 2012.
What began in 1996 during the Ramos administration officially ended (at least on paper) on that historical day in March 2014. But in between those very long 16 years were various roadblocks, challenges and detours that threaten to cut the “peace journey” short. But thanks the GPH and the MILG, both their peace panels stayed the course of peace and labored to forge a peaceful political settlement to the decades-old “Mindanao problem.”
So many milestones have been achieved during the 16-year “peace journey” that is about to culminate with the approval of the BBL. The first milestone was achieved in July 1997 with the signing of the “general cessation of hostilities,” just a year after President Fidel V. Ramos official began negotiating peace with the MILF.
It was thought that after the signing of the ceasefire agreement all guns will finally be silenced in Mindanao. But it was not to be so. Various skirmishes and conflict continue to erupt culminating in March 2000 when President Joseph Estrada launched the full might of the Armed Forces of the Philippines (AFP) against the Bangsamoro Islamic Armed Forces (BIAF), the armed wing of the MILF. Estrada’s all-out-war policy against the MILF ended with the capture of the Moro revolutionaries’ main headquarters, Camp Abubakar in Maguindanao province in July 2000.
Three years after suffering the biggest “defeat” of the Moro front at the hands of the AFP, the MILF announced to the whole world that its reclusive but charismatic leader Hashim Salamat was dead. That was in August 2003. Murad Ibrahim, the “silent”military strategist and chief of the BIAF, was chosen by the Moro revolutionaries to lead the MILF on to another chapter in their fight for a Moro homeland in Mindanao.
When President Gloria Macapagal-Arroyo assumed power (first through succession after the EDSA III revolt forced Estrada from Malacañang and second through election), her government resumed peace negotiations with the MILF. The talks with the MILF culminated with the “secret signing” in Malaysia in August 2008 of the very controversial Memorandum of Agreement on Ancestral Domain (MOA-AD), which the Supreme Court declared unconstitutional in October 2008. The high court’s junking of the MOA-AD triggered another war in Mindanao that displaced hundreds of thousands of Mindanawons.
But despite the bloody “MOA-AD war” of 2008, the GPH and the MILF did not completely abandon the peace process. Thus, when President Benigno Simeon C. Aquino III assumed power in 2010, peace negotiations resumed. But unlike the previous administrations’ sometimes “secretive” negotiations, the Aquino government’s peace negotiations with the Moro front were underlined with transparency and publicity every step of the way. It was perhaps these very transparency and publicity that sometimes threaten to derail and blocked the achievements of the peace process.
Let’s try to make a timeline of the peace process with the MILF during the Aquino administration, beginning in 2010:
2010:
<td”>Malacañang appointed lawyer Marvic Leonen, then dean of the University of the Philippines (UP) College of Law, as the government’s chief negotiator in the peace talks with the MILF
July 15 |
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September 7 |
The Office of the Presidential Adviser on the Peace Process, through Sec. Teresita Deles announced the formation on order of the President of an advisory council composed of members from both Houses of Congress, retired Supreme Court Justices, members of the 1987 Constitutional Commission, chief executives of local government units in conflict-affected areas, NGOs involved in peacebuilding and former chairpersons of the previous peace panels to assist government negotiators in the peace talks. |
2011:
August 4 |
President Aquino met with MILF chair Murad Ibrahim in Tokyo, where they agreed to expedite the peace process. |
2012:
October 7 |
The government and the MILF concluded the 32nd round of exploratory talks with the Framework Agreement on the Bangsamoro (FAB) that will pave the way to the creation of a “new” Bangsamoro region to replace the Autonomous Region in Muslim Mindanao (ARMM). |
October 15 |
The government and the MILF sign the FAB in Malacañang, the very first time a rebel group entered into the Philippines’ seat of power. |
November 12 |
The government and the MILF begins the 33rd round of peace negotiations in Malaysia, with the details of the Three Annexes on Power-Sharing, Wealth-Sharing, and Normalization of the FAB on the table. But this round of talks ended without any agreement signed. |
December 12 |
Professor Miriam Coronel-Ferrer took the helm as chief peace negotiator for the government following the appointment of Leonen to the Supreme Court. Ferrer chaired the 34th round of talks on this very day for the government side. |
December 16 |
End of the 34th round of talks. Both panels issued joint statement that they have reached a “technical impasse” over the issue of whether the MILF should lead the Bangsamoro Transition Authority (BTA). |
December 17 |
President Aquino signed Executive Order 120 creating the 15-member Bangsamoro Transition Commission (BTC) that will craft the Bangsamoro Basic Law (BBL). |
2013:
January 21 |
With the “technical impasse’ on who will lead the BTA on the table [this is the only unresolved issue in the Annex on transitional arrangements and modalities], both panels opened the 35th round of talks. |
January 25 |
Both panels “created” and signed the Term of Reference (TOR) of the Third-Party Monitoring Team composed of five independent local and international peacebuilders who were tasked to review, assess, evaluate and monitor the implementation of the FAB. |
February 25 |
The 36th round of talks began. President Aquino named the 15 members of the BTC, who were tasked to draft the BBL. |
February 27 |
Both panels signed the Annex on Transitional Arrangements and Modalities before the last session of the 36th round of talks. Both parties also agree, under the FAB, to form an Independent Commission on Policing (ICP), which will submit recommendations on how the relationship between the Philippine National Police and Bangsamoro police should work. |
March 25 |
The government formally asked the MILF for more time to review the Annexes, thus postponing the 37th round of talks. |
April 3 |
The 15-member BTC convened for the first time. |
April 9 |
Formal peace negotiations resumed with the opening of the 37th round. The talks ended without any agreement signed on April 11. However, only the discussions on the Annex on Normalization remained at the level of the Technical Working Groups (TWGs). |
April 30 |
The 15-member BTC agreed on the process it will follow in establishing its inner workings, including its organizational chart and internal rules and regulations. |
July 6 |
The Bangsamoro Islamic Freedom Fighters (BIFF), a splinter guerilla group, ambushes an army truck and attacks an army camp a day before peace talks resume. |
July 8 |
The 38th round of talks began, with the MILF panel approaching the negotiating table “with guarded optimism”. The talks were supposed to begin on July 7 but was postponed for the next day because on July 6, the Bangsamoro Islamic Freedom Fighters (BIFF), a splinter group, ambushed an Army truck and attacked an Army detachment in Datu Piang, Maguindanao province, killing 5 soldiers. |
July 11 |
The 38th round of talks, with Annex on Wealth Sharing on the agenda, ended without any agreement. In fact, the MILF panel members left the venue “in a huff”, with its chief negotiator later telling reporters that the government peace panels were “very rigid as if their mandate were cast in stone.” But the MILF later returned to the table in an attempt to seal the deal on wealth sharing. |
July 12 |
Still without an agreement, both panels agreed to extend the negotiations for one more day. |
July 13 |
Finally, the panels reached an agreement and signed the Annex on Wealth Sharing that provides for an automatic appropriations to the Bangsamoro as well as 75 percent share on taxes and revenues from metallic minerals mined in the Bangsamoro. |
August 22 |
The 39th round of talks began, with the last two Annexes on the table. |
August 25 |
Although the talks ended without reaching any agreement, both panels issued a joint statement stating their confidence of soon reaching a final peace pact. |
September 10 |
The government peace panel members almost missed their flight to Kuala Lumpur for the 40th round of formal peace talks after President Aquino called them to an emergency meeting in Malacanang following the Moro National Liberation Front (MNLF) attack on Zamboanga City the day before, September 9. |
September 19 |
While both panels felt that any agreement with be signed during this round, they agreed to extend the talks for another day. |
September 20 |
Both panels failed to reach an agreement on the Annex on Power Sharing and Annex on Normalization. However, both panels proposed various changes to the annexes that extended the “generally constructive” discussions. |
October 8 |
The 41st round of formal talks in Kuala Lumpur began. |
October 11 |
Without an agreement reached, the panels agreed to extend the talks for another day. |
October 13 |
Both panels ended the 41st round of talks without completing the Annex on Power Sharing. |
December 5 |
With the Annex on Power Sharing on the table, the 42nd round of talks began. |
December 8 |
Minus a deal on the most contentious issue in the talks, the so-called “Bangsamoro waters”, the peace panels ended the 42nd talks by signing the Annex on Power Sharing. |
2014:
January 22 |
Annex on Normalization — what to do with the firearms and what will happen to those who will lay down their arms — on the table as the 43rd round of formal talks began. |
January 24 |
The panels agreed on a deal on how to share power over the so-called Bangsamoro waters. |
February 6 |
Senate President Franklin Drilon and House Speaker Feliciano Belmonte Jr. met with other top congressional leaders and agreed to pass the BBL by the end of 2014. |
March 14 |
Presidential Adviser on the Peace Process Sec. Teresita announced that the final peace agreement with the MILF will be signed on March 27. |
March 27 |
A historic first: The revolutionary group Moro Islamic Liberation Front’s (MILF) leaders entered Malacanang and signed the CAB, the final peace pact, with the GPH. |
| “I will not let peace be snatched from my people again. Not now when we have already undertaken the most significant steps to achieve it.”—President Aquino III “[This signing of the CAB] is the crowning glory of our struggle.”—MILF Chairman Murad
“[The signing of the peace agreement is an act] of momentous courage.”— Malaysian Prime Minister Najib Razak
Following the signing of the CAB, MNLG Chairman Abul Khayr Alonto appealed to former chairman and MNLF Founder Nur Misuari to support the peace pact. But the MILF’s breakaway group, the BIFF, announced through its spokesman Abu Misry Mama, that it will continue the fight for independence in Mindanao through armed struggle. Senator Miriam Defensor-Santiago, who through the years of negotiations have been silent, broke her silence and announced her objection to the peace agreement arguing that it allows for the creation of the Bangsamoro sub-state and not a mere autonomous region. She, however, later clarified her position through a letter to Ferrer explaining that she only want to “ensure that it will be able to stand scrutiny in the Supreme Court.” |
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April 14 |
The BTC submitted to Malacañang a partial draft of the proposed BBL for review. The BTC completed the final draft April 20. |
April 25 |
The Joint Normalization Committee had its preliminary meeting in Kuala Lumpur to oversee the preparation of former rebels’ shift to civilian life. |
June 24 |
Both President Aquino and MILF Chairman Murad Ibrahim were invited as guests to a peace conference in Hiroshima, Japan. They later held a surprise meeting there. |
July 8 to 11 |
Both peace panels of the government and the MILF ironed out concerns on the proposed BBL in Kuala Lumpur, which ended on a “positive note”. |
July 28 |
President Aquino appealed for understanding for the delay in the drafting of the BBL during his 5th State of the Nation Address (SONA), stressing that “it is important that we scrutinize each provision.” |
August 1-10 |
Both panels met in Davao, where they vow to submit the final draft of the BBL on August 18. |
August 20 |
Mohagher Iqbal, chief peace negotiator of the MILF and head of the BTC, submitted to President Aquino the final draft of the BBL. |
September 8 |
Rep. Rufus Rodriguez, chairman of the Centrist Democratic Party (CDP) representing the second district of Cagayan de Oro City, was appointed chairman of the House of Representatives’ adhoc committee to review and hold public hearings on the BBL. |
September 10 |
After months of delay, President Aquino finally handed over the proposed BBL to Senate President Drilon and House Speaker Belmonte. |
September 23 |
The Senate conducted its first briefing on the BBL. |
September 24 |
The House ad hoc committee held its first public hearing on the BBL. |
September 27 |
Members of the peace panels of both the GPH and MILF discussed the disarmament process in Kuala Lumpur. |
December 1 |
Gov. Mujiv Hataman of the Autonomous Region in Muslim Mindanao (ARMM) delivered his last State of the Region Address (SORA) in Cotabato City. A month before, the ARMM celebrated its “curtain call” during the month-long 25th anniversary celebrated. |
2015:
January 21 |
Rep. Rodriguez’s ad hoc committee held its 36th and last public hearing. |
January 25 |
44 members of the Philippine National Police Special Action Force (PNP-SAF) died in a clash with the BIFF, MILF-BIAF and other armed groups in Mamasapano, Maguindanao. Eighteen Moro rebels and five civilians also died in the clash. |
January 26 |
Senators Alan Peter Cayetano and JV Ejercito withdrew as co-authors of the BBL. As a result, the BBL is no longer guaranteed a majority vote in the Senate. |
January 27 |
The MILF urged lawmakers not to delay deliberations on the BBL. |
January 29 |
The government and the MILF signed a protocol for the decommissioning of rebel firearms in Kuala Lumpur. |
March 2 |
Congress leaders set the end of the second regular session on June 30 as the new deadline for the passage of the BBL. |
March 19 |
Pulse Asia released its survey result on the acceptability of the BBL: 62% of Filipinos in Mindanao do not want BBL to become law while nationwide, 44% of Filipinos were opposed to the passage of the BBL. |
March 27 |
President Aquino creates the Citizens’ Council to help the public understand the BBL. |
January 26-March (Aftermath of the Mamasapano incident):
Following the Mamasapano incident, with the withdrawal of support by both Senators Cayetano and Ejercito, Senator Bongbong Marcos—who heads the Senate Committee on Local Governments—announced the indefinite suspension of hearings on the BBL. The Committee on Constitutional Amendments and Revision of Codes under Sen. Miriam Defensor-Santiago continued with its hearings on the constitutionality of the BBL. On the other and, Rep. Rufus Rodriguez announced that his committee will hold executive meetings on the BBL until the first week of February. This he made after announcing the suspension of the January 26 afternoon adhoc committee meeting.
The MILF claimed that its troops only acted in self-defense after the PNP-SAF fired on them. It also repeatedly said that the PNP-SAF did not coordinate with its ground commander in the area, as provided in its ceasefire agreement protocol with the government. [This claim was also contained in its official investigation report on the Mamasapano incident, which was conducted by the MILF’s own special investigative commission Murad Ibrahim formed. On March 24, the MILF submitted its 35-page report on the Mamasapano incident to the International Monitoring Team (IMT), a copy of which was given to the Senate. In its report, the MILF also recommended sanctions for its erring commanders ]. The MILF also denied coddling wanted terrorists “Marwan” and Abdulbasit Usman.
With the whole nation calling for the blood of the MILF in anger over the so-called “massacre” of the PNP-SAF, President Aquino addressed the nation for the first time on January 28 and admitted that he was in touch with PNP-SAF director Getulio Napeñas before the launch of the operation in Mamasapano. Aquino also repeatedly stressed that he told Napeñas to coordinate with the Army.
On February 2, the PNP formed its 6-member Board of Inquiry (BOI), headed by PNP Criminal Investigation and Detection Group (CIDG) chief Benjamin Magalong, to investigate the Mamasapano incident.
In the Senate, Sen. Marcos said that before he resumes hearings on the BBL, “confidence-building measures” must first be undertaken by both the MILF and the government. On the other hand, in the House of Representative, Rep. Rodriguez announced that concerned government agencies — OPAPP, ARMM, AFP and PNP — have first to submit their reports on the Mamasapano incident before his committee with resume hearings on the BBL. The February 9 deadline was later given.
On February 6, President Aquino addressed the nation for the second time and promised to pursue Usman while vowing to continue working for peace. He also announced that reforms in the PNP will be put in place.
Three days later or on February 9, the Senate, through the committee of Sen. Grace Poe, began its investigation into the Mamasapano incident. During the conduct of the hearing, Sen. AP Cayetano went on the offensive against the MILF. At one time, he pronounced the MILF as a terrorist group. At other times, he castigated the government peace panels for allegedly lawyering for the enemies. He also accused the MILF of victimizing the people of Mindanao for 20 years with its war and violence for a separate state.
During the Senate hearing, MILF chief peace negotiator Mohagher Iqbal, who also headed the BTC which drafted the BBL, appeared cool and calm despite the sometimes abrasive attitude of senators who grilled him and the government peace panel and OPAPP. Iqbal also pronounced that the MILF is committed to help track down Usman. In all the hearing where he appeared, Iqbal repeatedly announced the importance of the peace process.
In one of the hearings, Sen. Marcos pronounced the BBL as “in a coma.” However, he said he is not giving up on the peace process despite the “glaring weakness” in it as revealed by the Mamasapano incident.
As part of the “confidence-building measure”, the MILF returned the 16 firearms it recovered from the slain PNP-SAF to the government on February 18. A week later or on February 25, the AFP launched its “all-out offensives” against the BIFF in Maguindanao province. AFP Chief of Staff Gregorio Pio Catapang said it is “illogical” to go back to war with the MILF-BIAF.
True to his character and attitude towards the MILF after the Mamasapano incident, Sen. AP Cayetano delivered a privilege speech in the Senate on March 11 in which he called on the MILF to first lay down their arms before Congress passes the BBL.
On March 13, the PNP BOI released its 130-page report, which implicates resigned PNP chief Director-General Alan Purisima for acting “without authority” before and during the operation. The BOI report also said that President Aquino bypassed the chain of command in the PNP when he allowed a suspended Purisima to take part in the operation in Mamasapano.
Five days after the BOI released its report, the Senate on March 18 also released its 129-page report that was signed by 20 senators. In the report, the senators said that Aquino was “ultimately responsible” for the Mamasapano incident, along with Napeñas and Purisima.
Congress leaders, meanwhile, agree to resume hearings on the Mamasapano incident and the BBL in April.
In Northern Mindanao, Cagayan de Oro City, the Balay Mindanaw Foundation, Inc. (BMFI) initiated “peace conversations” with MILF chief peace negotiator Mohagher Iqbal and Adhoc Committee on the BBL chairman Rep. Rufus Rodriguez.
BMFI, which has a long history of peacebuilding work both local and international, did so as secretariat of the Tulay Kalinaw Mindanaw (Tulay KaMi or Bridge of Peace in Mindanaw), a peace conversation network in Northern Mindanao it convened along with Archbishop Antonio J. Ledesma, S.J., D.D., and the Archdiocese of Cagayan de Oro (ACDO).
During the March 25 “Peace Conversation” held at the Bishop’s House, the MILF chief peace negotiator repeatedly stressed that no matter what happened to the BBL, the MILF “will not disengaged from the peace process.”
With the “Peace Conversation” with Rodriguez on April 11, the congressman stressed that he will do his best to have the proposed measure passed by Congress. (Bong D. Fabe)