OFFICE OF THE PRESIDENTIAL ADVISOR ON THE PEACE PROCESS

TIMELINE OF THE CREATION OF THE OFFICE OF THE PRESIDENTIAL ADVISOR ON THE PEACE PROCESS

History of rebellion in the Philippines

Spanish Colonial Period (1521-1898) Insurgency has been a part and deeply rooted in the history of the Philippines beginning with the Spanish Era. When the Spanish Royal Court failed to bring political and socio-economic reform to the colony; spearheaded by the illustrados such as Jose Rizal, Juan Luna, Marcelo H. del Pilar and the like, armed rebellion soon became the only realistic option among discontented Filipinos. This became more appealing after the death of Rizal, in which nationalism was at its height. Although there were sporadic insurrections around the islands, however since they were not organized they were easily crushed by the Spaniards. It was not until notable figures such Emilio Aguinaldo and Andres Bonifacio formally organized the rebellion, which came to be known as the Katipunan. The main political aim of the armed struggle was to liberate the islands of the Spaniards that would then pave the way for the creation of an independent Republic of the Philippines. The rebellion against the Spaniards lasted for three (3) years (1896-1898). For a time the Spaniards tried to conquer the whole of Mindanao known as the Moro Wars. The colonizers were ultimately unsuccessful because of fierce resistance from the natives. (Luga, 2002)

American Colonial Period (1898-1946) The victory of the Katipuneros was overshadowed with the arrival of the Americans and the signing of the treaty of Paris of 1898. This accord eventually led to the Philippine-American War (1899-1902). The Philippines lost to the Americans and the islands was once again colonized under a new foreign power. 1

OFFICE OF THE PRESIDENTIAL ADVISOR ON THE PEACE PROCESS With the passing of the Tydings-McDuffie Act on 1934 the Commonwealth government was established in order to prepare the Philippines for independence in which the Americans would withdraw sovereignty over to the Filipinos. The Americans with their introduction of free trade and so called free opportunities; it only widened the social inequality that resulted out of the Spanish system that was still present among Filipinos. The capitalist structure the Americans implemented in the, according to Kerkvliet (1977) only made the American investors and the wealthy Filipinos to become richer and while the rural peasants only become poorer with no alternative sources of income. Naturally, many were dissatisfied with the Americans and their benevolent assimilation policies, some (especially the farmers) even rebelled. Uprisings have spurred in the years 1923, 1931 and 1934; however all were crushed by the Philippine Constabulary. Soon enough unions were established and became part of a larger labor movement at that time. The establishment of the Partido Komunista ng Pilipinas (PKP) on 1930 in which its founders came from the Partido Obrero de Filipinas or the Labor Party of the Philippines. At the same time with the creation of the PKP, radical tenants and famers founded the Katipunang Pambansa ng mga Magbubukid sa Pilipinas (KPMP) or the National Union of Filipino Farmers. In addition, the Agumang ding Madlang Talagapagbora (AMT) or the General Workers Union was founded in 1932 with Luis Taruc at the helm as its general secretary. All of these organizations (KPMP and the AMT) would later merge with the PKP (Ligot, 1994). Unfortunately for the leaders as well as its members, the PKP was weak, since it failed to create a solid power base in which they again erroneously focused on the urban instead of the rural proletariat. The party was further weakened when the Supreme Court outlawed it and most of its members either: dropped out, in exile or imprisoned. The PKP was however revived when it merged with the (legal) Socialist Party; which was founded by Pedro Abad Santos (1929), in 1938. Although there was indifference between the two parties, the union held. Apart from the communists, the American also inherited the Moro Problem from the Spaniards. Following the Benevolent Assimilation policy of 1898 several laws were subsequently passed by the colonial government. Laws such as: Land Registration Act of 1902 Philippine Bill of 1902 Public Land Act of 1903

OFFICE OF THE PRESIDENTIAL ADVISOR ON THE PEACE PROCESS These laws and policies in summary are resettlement of programs of Christianized Filipinos to areas in Mindanao according to Luga (2002). These laws started to take effect in 1913. With the sudden influx of Christians in the lands of the Moros, this started a growing animosity between the two; in the future this would further alienate them from their Filipino identity that will eventually lead to the modern Islamic insurgencies in the South.

Japanese Occupation (1941-1944) The invasion of the Japanese on the islands resulted in the executions and exiles of the PKP leadership. The remaining members along with some resistance leaders met and created the Hukbo ng Bayan Laban sa Hapon or the Peoples Army Against the Japanese (HUKBALAHAP or HUKs). The HUKs through guerilla tactics harassed the occupying Japanese forces, until the liberation on the country came in 1945 with the help of American forces (Ligot, 1994).

Post-War and the Roxas Administration (1945-1946) After liberation, the Philippine Republic was established in 1946. However, before the closing stages of the war, the Americans labeled the HUKs as communist subversives. In addition the Philippine Constabulary arrested several HUKs for refusing to surrender their firearms. The HUKs also found returning to civilian life difficult since the landlords and the government itself became more repressive in addition to the ever present socio-economic inequality in the rural areas. Combined with this, and the murder of Juan Paleo, a spokesperson of the Pambansang Kaisahan ng mga Magbubukid (PKM) created a flashpoint which ignited the rebellion of HUKs. By the 1950s their uprising became a major national security threat to the Republic (Ligot, 1994). In Mindanao, the Moros still feel alienated to their Filipino identity as research by Luga (2002). One reason is that the laws are sometimes in conflict with their Islamic values. Another reason is the lingering resentment towards the increasing flow of Christian settlers to Mindanao. In effect they are continually displaced from their traditional ancestral lands. This was further complicated when agricultural communities established by the government created more bitter conflict because of land distribution and land ownership. As a result there were bloody 3

OFFICE OF THE PRESIDENTIAL ADVISOR ON THE PEACE PROCESS confrontations between the Christians and the Muslims over these land disputes, although no organized Muslim revolt challenged the newly independent Republic.

HUK Rebellion (1946-1954) The height of the insurgency was during the end of the 1940s and the beginning of the 50s, when the strength and its movement were at its peak. However, the rebellion began to decline during the administration of Pres. Quirino (1949-1953) and with Ramon Magsaysay as his Defense Secretary. Magsasays approach to the insurgency was all out war and all out friendship. Among his accomplishments in dismantling the rebellion was the reorganizations of the Philippine Constabulary as well as the Armed Forces. He also diverted development resources to the rural areas to address the roots of the social injustices and discontent of the rebels. Though these, he restored the faith of the people back to democracy. The HUKs has also met several defeats with government troops during Magsasays term as Defense Secretary (Ligot, 1994). When Magsaysay took office in the Presidency (1953-1957), he continued his original strategy and won strategic victories over and over; most notably is the capture of Luis Taruc. By 1954 the rebellion was over with the PKP disbandment. The remaining stragglers were either captured by the government or ended up joining organized crime as racketeers. Some former members made occasional pronouncements for the reform and justice needed by tenant farmers.

Modern insurgency in the Philippines

Marcos administration (1965-1986) Rise of the CPP-NPA The Communist Party of the Philippines (CPP) was reestablished by Jose Maria Sison on November 1964 during the Marcos administration (1965-1986). He was indoctrinated in Red 4

OFFICE OF THE PRESIDENTIAL ADVISOR ON THE PEACE PROCESS China and prior to the CPP he also founded the Kabtaang Makabayan (KM) or the Patriotic Youth in the universities in Manila. It was somewhat a precursor to the newly reestablished CPP in which it (the KM) successfully attempted to unite urban middle class radicals with peasant groups, according to Ligot (1994). Early achievements of the CPP were the establishment of a link between the students (who supplied the ideological cement) and the peasants (who supplied the army). Another was on March 1969 when the New Peoples Army (NPA); the military wing of the CPP was established. The popularity of the CPP grew and was even heightened in the 1970s when student activism all around the world was at its height. It was also during that decade in which the NPA has now the capacity to conduct armed operations. Combined with a decline of the countrys economy at that time along with political instabilities (especially after the assassination of B enigno Ninoy Aquino, Jr. on 1983), CPP-NPAs membership increased. This was also when other insurgent groups were created, most notably the Cordillera Peoples Liberation Army (CPLA) and some being incorporated in the NPA. Rise of Secessionists Movements for Muslim Mindanao Although there was a minor rebellion in the early 1950s in Sulu led by Datu Hadji Kamlon it was not able to address economic problems in the South in mainstream society. In the 1960s both Muslims and Christians victimized each other in a struggle to get resources. Widespread banditry became prevalent in Mindanao, the two groups organized private armed militias (particularly the Christians) and into family clans (particularly the Muslims). Throughout the decade many Muslims felt neglected by the central government, in addition this sentiment was further enhanced by the international resurgence of Islam during the 1970s. The resurgence has strengthened their Islamic consciousness and solidarity, it turn the term Bangsamoro emerged as a nationalistic for all Muslims in the South. The catalyst of the Moro insurgency started after Moro recruits who were being trained by the Armed Forces of the Philippines (AFP) to covertly invade and reclaim the island of Sabah from Malaysia, were killed in Corregidor known as the Jabidah massacre. Before the recruits were killed they were promised by the national government large compensation for their service. The following months after the massacre Cotabato Governor Hadji Datu Udtog Matalam founded the Muslim Independence Movement; which was later renamed Mindanao Independence Movement (MIM). Its political aim according to their manifesto was to secede

OFFICE OF THE PRESIDENTIAL ADVISOR ON THE PEACE PROCESS from the Republic and to create an independent state; The Republic of Mindanao and Sulu. The MIM was however short lived when it was abruptly disintegrated when Datu Matalam was appointed as Presidential Advisor for Muslim affairs by Pres. Marcos on 1968. One Manila educated member, a young intellect named Nurlaji Misuari or Nur Misuari. In 1966, along with Jose Ma. Sison (leader of the modern CPP) was sent to China to study. After organizing the political and military arm (Bangsamoro Army) of the secessionist movement, he founded the Moro National Liberation Front (MNLF) in 1968 on March 18 in commemoration of the Jabidah massacre. During the 1970s the MNLF started its offensives against the government, because of the current political and economic turmoil at that time Pres. Marcos entered into a peace agreement with the MNLF that was to be known as the Tripoli Agreement of 1976 promising an autonomous Muslim region in Mindanao to the MNLF (Luga, 2002).

The Agreement stated that: The establishment of Autonomy in the Southern Philippines within the realm of the sovereignty and territorial integrity of the Republic of the Philippines. Also a ceasefire was to be implemented, stating that: Cease-fire shall be declared immediately after the signatures of this agreement, provided that its coming into effect should not exceed the 20th January 1977. A Joint Committee shall be composed of the two parties with the help of the Organization of the Islamic Conference represented by the Quadripartite Ministerial Commission to supervise the implementation of the cease-fire

The accord did not last however and the MNLF continued their military campaign against the government. Eventually overtime members within the MNLF soon became discontented with the leadership of Chairman Misuari, particularly Hashim Salamat who founded the break-away group the Moro Islamic Liberation Front (MILF) in 1984. He cited; one of the reasons why he broke away from the MNLF is that Misuari was leaning towards a Marxist-Leninist organization.

OFFICE OF THE PRESIDENTIAL ADVISOR ON THE PEACE PROCESS Creation of the Office of the Presidential Advisor on the Peace Process (OPAPP)

Corazon Aquinos Administration (1986-1992) It was during the administration of Pres. Corazon Aquino in which institutions were created towards the peace efforts to rebels groups were created that would eventually become the Office of the Presidential Advisor on the Peace Process (OPAPP). She first created the Office of the Peace Commissioner (OPC) on August 1987 through the Administrative Order No. 30 which defined the systematic approach and the administrative framework for the governments peace efforts. According to the Administrative Order Sec. 2 it stated that: Sec. 2. Major Elements of the Peace Effort. The systematic approach for the pursuit of peace as an organized effort shall have the following component elements: a. Formulation of a National Program for Peace. This will involve the identification and articulation of policies, programs, projects and other activities that are oriented towards contributing to the attainment of peace in particular as well as to the socio-economic and political development of the nation in general. Such Program shall include clarifying the process of integrating alienated communities into the national mainstream and defining a strategy for peace around which the nation can be mobilized. b. Negotiations and Dialogues. This will involve face-to-face discussions with groups that are threats to peace, designed to ascertain their grievances that will enable Government to formulate the necessary remedies.

c. Program Implementation. This will involve, as a conscious process of the Government, the implementation and realization of various reforms, programs and projects intended to create a positive climate conducive to peace, particularly of those identified as having an immediate impact for the realization of peace. The national program for peace and the results of negotiations will serve as the combined medium for determining such impact programs as will be undertaken to further the cause of peace.

OFFICE OF THE PRESIDENTIAL ADVISOR ON THE PEACE PROCESS d. Organized Support of Non-Government Groups. This will involve the realization of a systematic process for enlisting the cooperation and collaborative efforts of all groups in support of the pursuit of the Government's peace initiatives. This shall be directed towards getting the commitment of ordinary citizens as well as groups and associations of citizens, such as the church, non-governmental organizations, and allied groups, to support the peace process. This would constitute a major means for developing and mobilizing a nationwide consensus for peace.

Sec. 3 led to the creation of the OPC it is stated that: Sec. 3. Organization for the Peace Process. The administrative framework for carrying out the peace process shall be as follows:

a. The Presidency. The President shall provide the active leadership for the prosecution of the peace process. She shall, from time to time, enunciate the broad guidelines that will serve as the policy framework for the conduct of the Government's peace initiatives, as well as issue as necessary specific instructions and directives to carry out action programs designed to achieve peace.

b. Office of the Peace Commissioner. This Office shall be headed by a Peace Commissioner who shall be assisted by such staff as may be necessary. It shall have the following functions and responsibilities:

1. Serve as a staff to the President in coordinating the functions of the following offices: Office of the National Security Director, the Cabinet Secretariat, and Peace Negotiating Panels;

2. Assist the President in providing the day-to-day management and direction of the peace efforts;

3. Enlist, coordinate with, organize and mobilize a network of pro-peace citizen-groups (e.g. the church and civic, social, youth, religious and other organizations) for active involvement in the peace process; and

OFFICE OF THE PRESIDENTIAL ADVISOR ON THE PEACE PROCESS 4. Perform such other functions and exercise such delegated authorities as may be assigned by the President.

c. Peace Negotiating Panels. There shall be Peace Negotiating Panels which will perform the functions and responsibilities provided for in Section 2 (b) hereof, including the conduct of negotiations, dialogues and face-to-face discussions with groups that are threats to peace. d. Staff for Non-Government Organizations Liaison. There shall be a Staff for NonGovernment Organizations Liaison which shall perform the functions and responsibilities referred to in Section 2 (d) hereof, or to enlist the cooperation and collaborative efforts of all groups in support of the pursuit of the Government's peace initiatives, directed towards getting the commitment of ordinary citizens and non-government groups and associations such as the church and similar groups to support the peace process. (Republic of the Philippines, 1987)

It is also enshrined in the new 1987 constitution and also the most significant is the granting of Regional Autonomy of the Cordillera and Muslim Mindanao (Republic of the Philippines, 1986).

Article X Section 1 states that: The territorial and political subdivisions of the Republic of the Philippines are the provinces, cities, municipalities, and barangays. There shall be autonomous regions in Muslim Mindanao and the Cordilleras as hereinafter provided. Also in Section 15 under the Autonomous Regions: There shall be created autonomous regions in Muslim Mindanao and in the Cordilleras consisting of provinces, cities, municipalities, and geographical areas sharing common and distinctive historical and cultural heritage, economic and social structures, and other relevant characteristics within the framework of this Constitution and the national sovereignty as well as territorial integrity of the Republic of the Philippines.

OFFICE OF THE PRESIDENTIAL ADVISOR ON THE PEACE PROCESS Also by virtue of the Organic Act for the Autonomous Region in Muslim Mindanao (RA 6734) of 1989 the political entity known as the ARMM was created. It is stated in Section 2 that its purpose is: It is the purpose of this Organic Act to establish the Autonomous Region in Muslim Mindanao, to provide its basic structure of government within the framework of the Constitution and national sovereignty and the territorial integrity of the Republic of the Philippines, and to ensure the peace and equality before the law of all people in the Autonomous Region. (Republic of the Philippines, 1989)

Fidel V. Ramos Administration (1992-1998) Pres. Ramos presidency continued his predecessors peace efforts and on 1992 created National Unification Commission (NUC); its mandate redefined the parameters of the peace process which is aimed to strike out the roots of armed conflicts within the state (Office of the Presidential Advisor on the Peace Process, 1998). By mid 1993 the NUC has fulfilled its mandate. It submitted a report to the President; in it are recommendations for a concrete course of action in the pursuit of a comprehensive peace process with the following guiding principles: A comprehensive peace process should be community based A comprehensive peace process aims to forge a new social compact for a just, equitable, humane and pluralistic society. A comprehensive peace process seeks a principled and peaceful resolution

On 1993 the President issued Executive Order (EO) 125 which defines the approach and administrative structure for the governments comprehensive peace efforts (Republic of the Philippines, 1993). In Sec. 2 and 3 the principles of the peace effort states that: Sec. 2. Principles Underlying the Comprehensive Peace Process. The Comprehensive peace process shall be governed by the following underlying principles:

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OFFICE OF THE PRESIDENTIAL ADVISOR ON THE PEACE PROCESS a. A comprehensive peace process should be community-based, reflecting the sentiments, values and principles important to all Filipinos. Thus, it shall be defined not by government alone, nor by the different contending groups only, but by all Filipinos as one community. b. A comprehensive peace process aims to forge a new social compact for a just, equitable, humane and pluralistic society. It seeks to establish a genuinely pluralistic political society, where all individuals and groups are free to engage in peaceful competition for predominance of their political programs without fear, through the exercise of rights and liberties guaranteed by the Constitution, and where they may compete for political power through an electoral system that is free, fair and honest. c. A comprehensive peace process seeks a principled and peaceful resolution of the internal armed conflicts, with neither blame nor surrender, but with dignity for all concerned. Sec. 3. Components of the Comprehensive Peace Process. The comprehensive peace process shall henceforth include, but shall not be limited to, the following components: a. PURSUIT OF SOCIAL, ECONOMIC AND POLITICAL REFORMS. This component shall involve the vigorous implementation of various policies, reforms, programs and projects aimed at addressing the root causes of internal armed conflicts and social unrest. This may require administrative action, new legislation, or even constitutional amendments. b. CONSENSUS-BUILDING AND EMPOWERMENT FOR PEACE. This component shall include continuing consultations on both national and local levels to build consensus for a peace agenda and process, and the mobilization and facilitation of people's participation in the peace process. c. PEACEFUL, NEGOTIATED SETTLEMENT WITH THE DIFFERENT REBEL GROUPS. This component involves the conduct of face-to-face negotiations to reach peaceful settlement with the different rebel groups. d. PROGRAMS FOR RECONCILIATION, REINTEGRATION INTO MAINSTREAM

SOCIETY, AND REHABILITATION. This component shall include programs to address the legal status and security of former rebels, as well as community-based assistance programs to address the economic, social and psychological rehabilitation needs of former rebels, demobilized combatants, and civilian victims of the internal armed conflicts.

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OFFICE OF THE PRESIDENTIAL ADVISOR ON THE PEACE PROCESS e. ADDRESSING CONCERNS ARISING FROM THE CONTINUING ARMED

HOSTILITIES. This component involves the strict implementation of laws and policy guidelines, and the institution of programs to ensure the protection of non-combatants and reduce the impact of the armed conflict on communities found in conflict areas. f. BUILDING AND NURTURING A CLIMATE CONDUCIVE TO PEACE. This component shall include peace advocacy and peace education programs, and the implementation of various confidence-building measures. The EO also led to the creation of the Office of the Presidential Advisor on the Peace Process (OPAPP) in Sec. 4 to 5 it is stated that: Sec. 4. Administrative Structure. The administrative structure for carrying out the peace process shall be as follows: a. THE PRESIDENCY. The President shall provide the active leadership for the pursuit of the comprehensive peace process. b. PRESIDENTIAL ADVISER ON THE PEACE PROCESS. The Presidential Adviser on the Peace Process (PAPP) shall be charged with the management and supervision of the comprehensive peace process. He shall be appointed by the President and shall have the rank and remuneration of a Cabinet member. He shall perform he functions and discharge the duties and responsibilities enumerated in Memorandum Order No. 163 dated 25 August 1993. c. NATIONAL RECONCILIATION AND DEVELOPMENT COUNCIL. The National Reconciliation and Development Council (NRDC) shall perform the functions and responsibilities relative to the implementation of the reconciliation program for surfacing rebels. d. GOVERNMENT PEACE NEGOTIATING PANNELS. There shall be a Government Peace Negotiating Panel (GPNP) for each of the three rebel groups, to be composed of a Chairman and four (4) members who shall be appointed/designated by the President as his official emissary to conduct negotiations, dialogues and face-to-face discussions with rebel groups. They shall report directly to the President on the conduct and progress of their negotiations. e. PANEL OF ADVISERS. There shall be a panel of advisers for each of the GPNPs, composed of a member from the Senate, from the House of Representatives and from the Cabinet to be designated by the President, which shall function as an advisory body 12

OFFICE OF THE PRESIDENTIAL ADVISOR ON THE PEACE PROCESS to their respective GPNPs on the conduct of their negotiations leading to the achievement of a comprehensive, just and lasting peace. Sec. 5. Secretarial. The PAPP shall be provided with technical and administrative support by a Secretariat. The GPNPs shall each be provided technical support by a Negotiating Secretariat under the direct control and supervision of the respective Panel Chairmen. Administrative support services for the GPNPs shall be provided by the PAPP Secretariat. The PAPP and the GPNPs shall be authorized to organize their own Technical Committee and to hire consultants.

After much research and consultation the centre piece of the OPAPPs output is the Six Paths to Peace (Office of the Presidential Advisor on the Peace Process, 1998). The Six Paths of Peace are as follows: Pursuit of social, economic and political reforms Consensus-building and empowerment for peace Peaceful, negotiated settlement with the different rebel groups Programs for reconciliation, reintegration into mainstream society Addressing concerns arising from the continuing armed hostilities Building and nurturing a climate conducive to peace

The strategy includes confidence building, peacemaking, peace building, peace talks which would open dialogues to rebel groups. In 1996 a final peace agreement was made between the government and the MNLF was achieved. However, the splinter group; the MILF was still active. Joseph Estrada Administration 1998-2001 The administration of Pres. Estrada was marked with continuing war with the CPP-NPA after the failed talks initiated by former Pres. Ramos known as the Comprehensive Agreement to Respect Human Rights and International Humanitarian Law (CARHRIHL) . In addition he declared an all-out war with the MILF (International Crisis Group, 2011). Clashes between the 13

OFFICE OF THE PRESIDENTIAL ADVISOR ON THE PEACE PROCESS government and the MILFs resulted in several casualties on both sides, the destruction of the MILFs headquarters and other minor camps this in turn forced Hashim Salamat to flee in exile in Malaysia.

Gloria Macapagal Arroyo Administration 2001 It was during the presidency of the Arroyo when peace efforts were continued. One notable example of the administrations commitment towards peace was Executive Order No. 3. The EO was to further strengthen and enhanced the OPAPP in order to fulfill its mandate (Republic of the Philippines, 2001).

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OFFICE OF THE PRESIDENTIAL ADVISOR ON THE PEACE PROCESS

References:
International Crisis Group. (2011). THE COMMUNIST INSURGENCY IN THE PHILIPPINES: TACTICS AND TALKS. Brussels: International Crisis Group. Kerkvliet, B. J. (1977). The HUK Rebellion. University of California Press. Ligot, J. C. (1994). COMMUNIST INSURGENCY IN THE PHILIPPINES. Monterey : Naval Postgraduate School. Luga, A. R. (2002). MUSLIM INSURGENCY IN MINDANAO, PHILIPPINES. Leavenworth County: U.S. Army Command and General Staff College. Office of the Presidential Advisor on the Peace Process. (1998). Nurtuting a Culture of Peace in the Cordillera. Mandaluyong: Office of the Presidential Advisor on the Peace Process. Republic of the Philippines. (1986). 1987 Constitution. Manila: Republic of the Philippines. Republic of the Philippines. (1987). ADMINISTRATIVE ORDER NO. 30. Manila: Republic of the Philippines. Republic of the Philippines. (1993). EXECUTIVE ORDER NO. 125. Manila: Republic of the Philippines. Republic of the Philippines. (2001). EXECUTIVE ORDER NO. 3. Manila: Republic of the Philippines. Republic of the Philippines. (1989). Republic Act No. 6734 . Manila: Republic of the Philippines.

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