Implementation of Normalization under CAB

Constitutional and legal bases

The order is anchored on Section 5, Article II of the 1987 Constitution on maintaining peace and order and promoting the general welfare.
The order is also anchored on Section 17, Article VII of the 1987 Constitution on presidential control of executive departments and offices.
Republic Act No. 11054 provides the legal framework for normalization in the Bangsamoro Autonomous Region in Muslim Mindanao (BARMM) and is treated as the parallel/complementary legal basis.
The order implements and is consistent with the Annex on Normalization under the Comprehensive Agreement on the Bangsamoro (CAB).
The order draws cross-references to Executive Order No. 264 (s. 1987) for reserve geographical auxiliary units and to Republic Act No. 10591 for SALWs management under its firearms regulatory framework.

Policy, purpose, and program adoption

The National Government recognizes normalization as a process for communities to achieve their desired quality of life within a peaceful and deliberative society.
The National Government adopts a Normalization Program that is multi-faceted.
The Normalization Program covers: security, socio-economic development, sustainable livelihood, political participation, confidence-building, and transitional justice and reconciliation.
The Inter-Cabinet Cluster Mechanism is created to ensure timely, appropriate and efficient delivery of the Normalization Program.

Inter-Cabinet Cluster Mechanism (ICCMN)

An Inter-Cabinet Cluster Mechanism on Normalization (ICCMN) is formally established to ensure coordinated implementation.
The ICCMN is co-chaired by representatives from OPAPP and OCS, each with a rank not lower than an Undersecretary.
The ICCMN includes agency representatives (rank not lower than an Assistant Secretary or equivalent) from: National Security Council; DILG; DND; DOJ; DSWD; Department of Agriculture; Department of Education; Department of Health; Department of Labor and Employment; Department of Finance; DBM; Department of Trade and Industry; Department of Information and Communications Technology; NEDA; Commission on Higher Education; TESDA; and National Commission on Indigenous Peoples.
Agencies designate alternate members of equal rank to serve in the absence of their designated representatives.
The order requires a quorum: a majority of the ICCMN members constitutes a quorum for transaction of business.
The chairpersons convene meetings regularly and as often as may be necessary for coordination and implementation.

Secretariat, reporting, and institutional roles

OPAPP serves as the Secretariat of the ICCMN, complemented by existing personnel from member-agencies.
The Secretariat provides technical and administrative support to the ICCMN.
The Secretariat coordinates with concerned agencies on the status of component plans and programs.
Member-agencies must submit periodic reports on their respective programs to the Secretariat.
The ICCMN must submit periodic reports on implementation of the Order to the President.

Powers and functions of ICCMN

The ICCMN coordinates and mobilizes relevant government agencies to implement normalization components in line with their respective mandates.
The ICCMN provides policy advice and necessary support to achieve timely and smooth implementation of the program components, consistent with streamlined administration, efficient delivery, and accountability.
The ICCMN supervises and monitors all socio-economic interventions under the Normalization Program implemented through relevant government agencies.
The ICCMN creates a Working Group on Vulnerable Sectors composed of relevant government agencies.
The Working Group on Vulnerable Sectors recommends interventions for vulnerable sectors, including: indigenous peoples, internally-displaced persons, widows, orphans, people with disabilities, detainees and their families.
The ICCMN performs other functions as directed by the President.

Scope: covered groups, areas, and locations

Normalization programs cover combatant and non-combatant elements of the MILF, families of the decommissioned combatants, and other vulnerable individuals and sectors residing in BARMM.
The programs operate consistent with Republic Act No. 11054.
The programs cover six (6) recognized MILF camps, specifically:
- Camp Bilal (Lanao del Norte and Lanao del Sur)
- Camp Omar ibn al-Khattab (Maguindanao)
- Camp Rajamuda (North Cotabato and Maguindanao)
- Camp Busrah Somiorang (Lanao del Sur)
- Camp Badre (Maguindanao)
- Camp Abubakar as-Siddique (Maguindanao)
The programs also cover such other locations of decommissioned combatants as may be identified by the GPH and the MILF Implementing Panels.

Normalization program aspects and operative mechanisms

The Normalization Program consists of the following aspects, consistent with Republic Act No. 11054.

A. Security Aspect

Joint Normalization Committee (JNC) and Joint Peace and Security Committee (JPSC) created under the Annex ensure effective security collaboration.
Transitional components are operationalized through Joint Peace and Security Teams (JPSTs).
The DND and the DILG respectively direct the AFP and the PNP, in coordination with BIAF-MILF, to designate members to the JPSTs as operating units of the transitional components.
JPSTs are assigned and deployed in mutually-agreed areas.
The DND provides appropriate trainings to the BIAF-MILF contingent in the JPST.
The AFP and PNP, in consultation with the JNC and JPSC, provide inputs and support to operationalize JPSTs, including development of training curriculum, assignment of instructors, internal orientations, and continuing capacity-building activities.
During the transition period, the DND may provide special enlistment of BIAF-MILF members in the JPSTs for those who intend to apply for entry to the AFP, appointment as Citizen Armed Force Geographical Unit (CAFGU) member, or to a reserve geographical auxiliary unit in the BARMM organized in accordance with Executive Order No. 264 (s. 1987) and other relevant laws.
MILF forces and weapons undergo verification, validation, and decommissioning by an Independent Decommissioning Body (IDB) composed of three (3) foreign experts (including the Chairperson) and four (4) local experts agreed upon by the GPH and the MILF.
Upon request of the IDB Chair, the AFP and PNP provide personnel to assist in the decommissioning process when necessary.
The AFP and PNP, together with relevant government agencies, provide routes, convoy, and area security during decommissioning activities, working with normalization bodies.
The program for disbandment of Private Armed Groups (PAGs) is handled by the National Task Force for the Disbandment of the Private Armed Groups in the Bangsamoro Core Territory and the adjacent Regions IX to XII, created under Memorandum Circular No. 83 (s. 2015).
The PAG disbandment program includes policy, planning, and implementation, including coordination with relevant bodies as necessary.
SALWs management requires development of a program for reduction and management of SALWs of individuals and groups by the JNC, coordinated with AFP and PNP, consistent with Republic Act No. 10591.
Mines/UXO detection and clearance and mine risk education must be supported by relevant agencies in activities toward demining and mine risk education with assistance from concerned organizations or experts.
The ICCMN is supported in mine/UXO-related activities through the above agency support.

B. Socio-Economic Development

Government agencies must prioritize, intensify, and accelerate implementation of development efforts for rehabilitation, reconstruction, and development of the BARMM.
Government agencies must address needs of BIAF members, internally displaced persons, and poverty-stricken communities as part of normalization.
Socio-economic programs must be community-based, reinforce social cohesion, and strengthen and preserve the unity of the communities.
The Task Force for Decommissioned Combatants and their Communities coordinates with the ICCMN and other stakeholders in delivering these programs, subject to guidelines of the Implementing Panels.
The Joint Task Forces on Camps Transformation must assess needs, formulate a comprehensive and integrated development plan, and undertake measures transforming the six (6) recognized MILF camps and other identified areas into peaceful and productive communities.

C. Confidence-Building Measures

A Technical Working Group chaired by DOJ and OPAPP must be established to study and recommend the propriety of grant of amnesty or pardon.
The Technical Working Group must identify other available processes toward resolution of cases of persons charged with or convicted of crimes and offenses connected to armed conflicts in Mindanao as contemplated in the Annex on Normalization.

D. Transitional Justice and Reconciliation

The ICCMN leads implementation of recommendations in the report of the Transitional Justice and Reconciliation Commission.
These recommendations address legitimate grievances of the people in BARMM, correct historical injustices, and address human rights violations and marginalization through land dispossession, toward healing and reconciliation.
Relevant agencies must be convened under the ICCMN to work toward adoption and implementation of the Transitional Justice and Reconciliation Program for BARMM.

Funding, resource mobilization, and donations

Initial funding requirements for implementation are charged against sources identified by DBM.
Funding requirements for succeeding years are included in the respective budgets of ICCMN member-agencies and other appropriate funding sources identified by DBM.
Funding must follow existing budgeting, accounting, and auditing laws, rules and regulations.
Donations and other funds from sources outside government may be received in accordance with relevant laws, rules and regulations.

Duration, convergence, integrity, and guidelines

The ICCMN ceases to operate upon the signing of the Exit Agreement by the GPH and the MILF Implementing Panels, or when the ICCMN determines that the programs under the Normalization Program are completely implemented, whichever comes earlier.
All government departments, bureaus, agencies, offices, and local government units, including government-owned or -controlled corporations, must extend support—technical and logistical assistance—to the ICCMN and its Secretariat.
Existing government coordinating mechanisms at all levels are used for efficient and effective inter-agency coordination.
The ICCMN must ensure integrity, accuracy, and—when applicable—confidentiality of information received pursuant to the Order.
The QCS and OPAPP, with the concurrence of ICCMN member-agencies, may issue operational guidelines for effective implementation.

Repeal, separability, and effects

All orders, rules and regulations, issuances, or parts thereof inconsistent with the Order are repealed, amended, or modified accordingly.
If any part or provision is held unconstitutional or invalid, the remaining parts and provisions continue in full force and effect.