Mindanao’s Road to Peace: Explaining the BOL Plebiscite

THE NEXT step towards ending the 50-year struggle of the Bangsamoro for self-determination, equality and peace, the Bangsamoro Organic Law (BOL) is now in the hands of the people of Mindanao who will cast their vote in a plebiscite on January 21.

That the vote is being held at all is a feat in itself.  Several administrations have talked peace with the Muslim groups fighting for independence or autonomy, as a result of which different versions of the law have been drafted. The impending vote on the BOL is the culmination of two decades of formal negotiations between the Moro Islamic Liberation Front (MILF) and the Philippine government.

The vote will be accomplished in two plebiscites. The first will take place on January 21 in the Autonomous Region in Muslim Mindanao (ARMM), including Isabela City in Basilan and Cotabato City. Those coming from petition areas or contiguous municipalities and villages aspiring to be part of the new Bangsamoro Autonomous Region in Muslim Mindanao (BARMM) will vote on February 6.

Peace may be on its way for the Bangsamoro, but media have yet to note the significance of the BOL and its ratification. Coverage may have visibly increased in the week leading to it, but this has not been enough. Only some reports stand out for explaining the complex voting process, BOL’s salient provisions,  and the implications of the plebiscite results.

CMFR monitored the reporting of three broadsheets (Philippine Daily Inquirer, Philippine Star, Manila Bulletin), four primetime newscasts (ABS-CBN 2’s TV Patrol, GMA-7’s 24 Oras, TV5’s Aksyon and CNN Philippines’ News Night), selected cable access news programs and selected online news sites.

Just breaking news

During the monitor period of January 1 to 15, 2019, primetime TV reports focused on the mechanics of preparation for the plebiscite, such as the printing of ballots, security measures, the areas which have petitioned for inclusion in the BARRM, and the campaign for ratification.

Print coverage was somewhat similar, but also closely followed the petitions filed against the BOL before the Supreme Court, where two are pending: one filed by the provincial government of Sulu, led by Gov. Abdusakur Tan II, and the other by the Philippine Constitution Association (Philconsa).

Among the issues raised by the petitions are the constitutionality of ARMM’s abolition and the “one geographical area” provision allowing a single vote for the entire ARMM, instead of a separate vote for each province. On January 15, the court announced that it will hear oral arguments after the first part of the plebiscite.

The alleged lack of a budget for the plebiscite and its implementation  grabbed media’s interest. House Majority Leader Rep. Rolando Andaya Jr. warned in a privilege speech on January 14 that the “prospect of lasting peace in Mindanao is in peril” because Budget Secretary Benjamin Diokno had failed to include funding for the BOL juridical entity in the 2019 budget.

These questions on constitutionality and the lack of funds should have driven media to look into other aspects of the BOL, including the importance and urgency of its implementation, provisions for the transition process, its role in peace-building, how it is a better law than previous drafts, its impact on the Moro and non-Moro communities in Mindanao, and on the nation as a whole. But most of the primetime newscasts and daily broadsheets treated the BOL as breaking news.

Fortunately, some public affairs programs and a few broadcast and online media produced explainers and special reports on the upcoming BOL plebiscite that helped contextualize the issue.

Explainers and Specials

CMFR cheers the media organizations which shed light on the BOL, producing explainers and special reports to contextualize the plebiscite events, consulting experts and providing critical analysis.

On the January 7 episode of ANC’s Headstart with Karen Davila, Commission on Elections (Comelec) Spokesperson James Jimenez discussed the double majority vote, clarifying that interested municipalities will also need the approval of the entire province to qualify for inclusion.

On January 15, Christian Esguerra’s report on ANC’s The Bureau noted some critical factors at play in the upcoming plebiscite. Esguerra also explained the voting process for provinces that require a double majority vote for approval.

An episode of ANC’s Beyond Politics with Lynda Jumilla that aired on the same day featured a panel interview with UP Islamic Studies Prof. Jukipli Wadi and Bangsamoro Transition Commission Chair Ghazali Jaafar, who said that since tensions have flared  ahead of the plebiscite, Mindanao’s leaders must sacrifice their own political interests for peace.

Still on the same day, CNN Philippines’ Newsroom aired a report that looked into investment prospects under the proposed Bangsamoro region. According to the report, apart from being the poorest region, ARMM also has three of the country’s poorest provinces — Lanao del Sur, Maguindanao and Sulu. Trade Undersecretary Abdulgani Macatoman said that BARMM’s increased internal budget will have a huge impact on the livelihood of Moros. The Bangon Marawi Chamber of Commerce also enumerated the economic benefits that will come with BOL’s new provisions.   

On January 1, TV5 Aksyon’s explainer addressed the structure of the proposed BARMM parliament. Anchor Ed Lingao emphasized that under BARMM’s government, the legislative branch will also act as the executive. In terms of funding, BARMM will automatically receive five percent of the national collection from the bureaus of internal revenue and customs. The region will also receive 75% of their local tax collection, as well as an annual rehabilitation fund of Php5-billion for the next ten years. 

Rappler’s report that was published on January 8 discussed the six possible scenarios that may happen in the plebiscite. The SC could issue a temporary restraining order on the plebiscite; violence could postpone the vote in crucial areas; the vote pushes through but with no additional areas; the vote pushes through and BARMM expands to include Cotabato City; the vote pushes through and BARMM wins in most areas, and the vote pushes through but ‘No’ to BARMM prevails.

As the plebiscite draws near, media will understandably attempt to make up for lost time. But voters needed quality coverage early on to help them make informed decisions before the plebiscite. Reports about the BOL should have been on the front pages and the newscasts of national media to encourage discourse on a matter that can affect not only Mindanao and its people but also the entire country.

After years of conflict and neglect, there is much at stake in the plebiscite. Unfortunately, with exceptions, media have so far failed to give BOL the focus and scrutiny it deserves.

The same media that are drawn to war and conflict for their news headlines cannot do the same for these painstaking measure for peace.