A Legacy of Failure
The
violence in Sulu the past weeks, which was punctuated by the series of bombings
in three key cities on Feb. 14, indicate that the objectives of the 1996 peace
agreement are far from achieved.
By Carlos H. Conde
Bulatlat
MANILA – Nearly a decade
ago, the Philippine government and the Moro National Liberation Front (MNLF),
the first Moro separatist group, signed a peace agreement that many thought
would end the 27-year Islamic rebellion in the southern Philippines.
Government troop deployed
in Sulu to fight MNLF forces Photo from Associated Press
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But the violence here the
past two weeks, which was punctuated by the series of bombings in three key
cities on Feb. 14, indicate that the objectives of that supposed political
settlement are far from achieved.
“It is not a stretch to say
that the outbreak of terrorism in the Philippines can be traced directly to the
failure of the 1996 peace agreement with the Moro National Liberation Front,”
said Abhoud Syed Lingga, a Moro scholar and expert on the Islamic separatist
movement in Mindanao.
As a result of the failure
of the 1996 peace agreement between the government and the moderate MNLF to end
the conflict in Mindanao, other groups grew. These are the Moro Islamic
Liberation Front (MILF) – which had broken away from the MNLF earlier - and the
Abu Sayyaf, a group that originally espoused Islamic fundamentalism but
degenerated into kidnapping, rape and murder, and is now trying to return to its
fundamentalist roots, terrorism experts say, by establishing alliances with
domestic Islamic groups as well as the Jemaah Islamiyah.
People were euphoric after
the signing of the agreement, which established the Autonomous Region in Muslim
Mindanao (ARMM). Millions of dollars in aid from the West poured into Mindanao,
where most of the country’s Moros live. As part of the agreement, the armed
forces absorbed former guerrillas of the MNLF. Livelihood projects, many of them
funded and supported by the United Nations and Western nongovernment
organizations, were established.
The government insists that
the agreement produced some significant gains, such as the Moros’ integration
into the political and economic mainstream, representation in government,
establishment of their own educational system and the integration by the former
guerrillas into the military.
Slow
implementation
But over all, the
implementation of the agreement has been slow, the results modest at best.
“There have been problems, true, but despite these problems, the process has
been holding,” said Teresita Deles, an adviser to President Gloria Macapagal-Arroyo
on the peace process.
“People should also keep in
mind that, since 1996, there has not been open hostilities between the MNLF and
the government,” she added.
Whether Moros actually
benefited from these gains is another story, said Soliman Santos, another expert
on Islamic separatism.
The Moro region was still
the poorest in the country, the literacy rate hardly improved, the infant
mortality rate was still the highest compared to the other regions, lawlessness
was still rampant. Tens of thousands of Moros were displaced in the ongoing
conflicts.
Before long, Moros started
to look to the MILF, which by then was offering the very thing that the
government and the MNLF had said they had delivered: self-rule for Moros.
The Washington-based U.S.
Institute of Peace, which has been involved in the peace process on behalf of
the U.S. government, recognized early on the difficulties that lie ahead. “The
long history of the conflict and the failed approaches to resolve it have
created deep divisions among Moros and among the general Filipino populace,
which regards any peace agreements with skepticism or, at the most, guarded
optimism,” it said in a recent report.
The ARMM, the region that
the MNLF has been tasked to manage, was not exactly autonomous. It is hamstrung
by a number of factors, among them the fact that it still depends on Manila for
its budget and that it cannot exploit its natural resources that easily and on
its own because it would violate the constitution.
Land
redistribution
The agreement also did not
tackle land redistribution, a contentious issue for the Moros here whose lands
were confiscated by Christians, often by force, after World War II.
“Nearly all agree today
that this experiment in autonomy has been a failure, both due to the Philippine
government’s insincerity and the fundamental limitations of a constitutional
approach,” wrote Shauna Morgan of the University of Toronto, who studied the
agreement.
“Instead of self-rule, what
the MNLF got was integration into the very system that they had fought,” said
Lingga, the Moro scholar. “It was a fatal mistake for the MNLF.”
For years, Nur Misuari, the
founding chairman of the MNLF, served as governor of the region but he hardly
performed, according to his critics. Worse, he was hounded by allegations of
corruption and incompetence that eventually led to his ouster from the
leadership of the MNLF.
Misuari broke away from the
Arroyo administration when it refused to support him for reelection as governor
in 2001. But a more fundamental reason for this falling out, some of his friends
say, was Misuari’s disaffection, which he didn’t hide from the public, toward
the peace agreement.
“They promised Misuari
autonomy but they wanted merely to pacify him. They were just trying to solve
the problem of the MNLF, as if the MNLF was the problem,” Lingga said, referring
to then President Fidel Ramos and the Organization of Islamic Conference, which
brokered the peace process. Lingga said Ramos railroaded the agreement no matter
what so that he can have a legacy of this presidency. The OIC pressured Misuari
into signing it because it wanted a showcase for the international Islamic
community.
Meanwhile, violence
continues in the south, with Misuari’s loyalists battling government troops in
Jolo and, according to the military, maintaining alliances with the Abu Sayyaf.
Denial
The leader of the MNLF
uprising in Sulu has denied any involvement with the Abu Sayyaf. Ustadz Habier
Malik, a well-respected and well-liked MNLF leader, has said in previous
statements that his group’s assault on government positions beginning on Feb. 7
was in retaliation for the military’s killing of civilians, including a child
and a pregnant woman, a week before.
But the military has been
insisting that three of the victims were Abu Sayyaf members. It has, however,
failed to rebut allegations that its offensives in Sulu against the Abu Sayyaf
have victimized civilians, particularly children.
The MILF, which is
negotiating with the government, is now in the best position to correct the
wrongs of the 1996 agreement, said Santos, who wrote a book about the separatist
struggle here.
“The framework should be to
solve the fundamental problem, which is the lack of self-rule for Moros,” Santos
said. “If you can achieve that key aspiration, you’re on your way to solving the
conflict in Mindanao.”
That, too, will deal with
the problem of Islamic extremism and terrorism. In a report last July, the
Brussels-based International Crisis Group said that "genuine and fully
implemented autonomy for Philippine Muslims is a sine qua non in winning the
long-term war on terror in Mindanao.” Bulatlat
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