INSTITUTE FOR AUTONOMY AND GOVERNANCE KONRAD ADENAUER-STIFTUNG

ALUMNI CENTER, NOTRE DAME UNIVERSITY, COTABATO CITY

ARMM in Transition Series

No. 5 September 20, 2005

The ARMM in Transition Series brings together

academics and leaders in the Autonomous region in By Abhoud Syed M. Lingga
Muslim Mindanao to a discussion and analysis of
critical issues that shape the future of the autonomous
region. Views expressed in this paper do not Strengthening ARMM Elections to
necessarily reflect those of the Institute for Autonomy
and Governance, Inc. and the Konrad- Adenauer-
Stiftung.
Promote Peace
This paper “Strengthening ARMM Elections
to Promote Peace” addresses the following questions: Introduction
What lessons can be drawn from the recent elections
in the ARMM? What role do regional political parties The 1987 constitution of the Philippines provides for the
play in these elections? What can be done to make establishment of autonomous regions in Muslim Mindanao and the
elections an instrument for greater democratization and Cordillera. With this constitutional mandate the Philippine Government
peace in the region? created the Autonomous Region in Muslim Mindanao (ARMM) as its
own approach of complying with the 1976 Tripoli Agreement between
This paper is written by Prof. Abhoud Syed
M. Lingga, Executive Director of the Institute for the Government and the Moro National Liberation Front (MNLF)
Bangsamoro Studies in Cotabato City. Lay-out by which provide for establishment of autonomy for the Muslims in South
Grace Delos Reyes-Talamillo. Philippines within the sovereignty and territorial integrity of the
Philippines. The Philippine Congress passed in 1989 Republic Act No.
This series is made possible through the grant of 6734, the law governing the creation and operations of the ARMM.
the Konrad-Adenauer Stiftung. KAS is in 3rd floor, In a plebiscite conducted on November 19, 1989, four out of the
ALPAP I building, 140 Leviste Street, Salcedo Village,
thirteen provinces proposed in the 1976 Tripoli Agreement voted to
Makati City, Metro Manila, Philippines, telephone 894-
3501. constitute the autonomous region. After the conclusion of the
negotiations between the Government and the MNLF in 1996,
Established in 2001, the Institute for Autonomy amendments were introduced in the ARMM Organic Act to
and Governance, Inc., seeks to provide research, accommodate provisions of the GRP-MNLF final agreement. Republic
training and technical assistance to promote Act No. 9054, the new ARMM organic act, became a law on March
meaningful autonomy and governance in the southern 13, 2001. In the plebiscite held on August 14, 2002, one province and
Philippines. The Institute is at the Alumni Center, Notre
one city joined the autonomous region.
Dame University, Notre Dame Avenue, Cotabato City,
Philippines, telephone 0918-5040-805.
At present the ARMM is composed of five provinces and one
city. One hundred municipalities and 2,459 barangays (villages)
constitute the area of autonomy. It has a population of 2,873,232 and
CONTENTS 89.17 percent are Muslims. The autonomous region is the poorest in
the whole Philippines. Poverty incidence of families in 2003 was 45.7
General Observation 2
percent compared with the national figure of 24.7 percent, and poverty
Election Management and 3
Administration
incidence of population was 53.1 percent in the ARMM and 30.4
Political Parties 3 percent for the whole country.
Civil Society 4
Conclusion and Recommendations 5 There are 1,057,458 registered voters in the autonomous region
which is 2.43 percent of the total number of voters in the whole country.
 The Commission on Elections (COMELEC) established 7,784 election precincts in
the five component provinces and one city.

Number of Precincts and Registered Voters

Autonomous Region in Muslim Mindanao
As of April 28, 2004
Province Number of Precincts Registered Voters
ARMM 7,784 1,057,458
Basilan* 711 117,467
Maguindanao** 2,475 334,287
Lanao del Sur 2,010 275,572
Sulu 1,884 209,677
Tawi-Tawi 704 120,455
*Excluding the City of Isabela
**Excluding the City of Cotabato

Source: Comm ission on Elections

Since its creation, five elections were held in the ARMM to elect the Regional
Governor, Regional Vice-Governor and members of the Regional Legislative Assembly
(RLA) composed of three members from each district. Three elections were held
under the old organic law and two under the new organic act.

ARM M Elections
February 12, 1990
March 25, 1993
September 9, 1996
November 26, 2001
August 8, 2005

“Although there is GENERAL OBSERVATION

growing cynicism
regarding the credibility Since its creation the transfer of power in the ARMM had been through the
of the election process, ballot box. Although there is growing cynicism regarding the credibility of the election
nonetheless the process, nonetheless the institutionalization of election is a democratic development
in the autonomous region that has to be recognized. Base on COMELEC figures,
institutionalization of
there was great number of voters who exercise their right to vote during elections.
election is a democratic Except during the November 26, 2001 elections where the voters’ turnout was just
development in the 21.99 percent, the voters’ turnouts during the past four elections were relatively
autonomous region that high. The voters’ turnout was 76.44 percent during the September 9, 1996 election;
has to be recognized.” 82.39 percent in the March 25, 1993 election; and 80.09 percent in the February 12,
1990 election. The estimated turnout last August 8, 2005 election was 88.2 percent.

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ELECTION MANAGEMENT AND ADMINISTRATION

• Although schedule of election is fixed by law but this has always been
postponed. Only the first election was held on time. The irregularity of election “Although schedule of
schedules made it difficult for political parties and candidates to plan for election is fixed by law
election activities. Consequently, terms of office of incumbents were extended but this has always been
beyond what are provided by law. postponed. Only the first
election was held on
• The voters’ lists in the ARMM are full of multiple registrants. This is admitted
time.”
by the COMELEC but it failed to purge the voters’ lists of multiple registrants
and under age registrants. There was also failure on the part of COMELEC
to inform voters who were reassigned to vote in different precincts resulting
to disenfranchisement of many voters.

• The failure of the COMELEC to automate the polling, counting and

transmission of results cast doubt on the election process, despite the efforts
of the COMELEC last election to centralize the counting of votes. Instead of
the traditional canvassing done at the precinct levels the votes were counted
in centers put up in each of the five ARMM provinces. However, there were
still allegations that ballots were filled up before the day of election, and
many were disenfranchised allegedly because somebody voted using their
names. Congress is now investigating these charges.

• Vote buying is reported every election but no concrete step done to stop this
practice. Both the COMELEC and the political parties have not shown any
effort to put an end to vote buying.
“The peaceful conduct
• The peaceful conduct of election last August 8 was a commendable of election last August 8
achievement of the COMELEC, the police and military. It demonstrated that was a commendable
peaceful election is possible, and violence in past elections could have been
achievement of the
avoided if the COMELEC, police and military did their job.
COMELEC, the police
• Although there are democratic institutions like an independent judiciary that and military. It
act as arbiter in election complaints the process of adjudicating election protests demonstrated that
is slow and costly. peaceful election is
possible, and violence in
POLITICAL PARTIES past elections could
have been avoided if the
• There is no regional political party with ARMM population as its focus COMELEC, police and
constituency. There are five accredited Muslim political parties that have military did their job.”
their constituencies both in areas of the ARMM and outside the ARMM.

The founding presidents of these political parties are: Dr. Mahid M. Mutilan
(Ompia Party), Ustadz Abdulmalik Laguindab (Ummah Party), Ustadz
Ebrahim Abdulrahman (Islamic Party of the Philippines), Kamar Mindalano
(Muslim Reform Party), and Basher Calauto Edris (People’s Consultative
Party).

Like the national political parties these Muslim political parties do not seek
mass membership only mass support during election.
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 Muslim Political Parties with Constituencies
In the Autonomous Region in Muslim Mindanao
(April 11, 2001)

Political Party Constituency Headquarters

OMPIA Party
Muslim Reform Party
People’s Consultative
Party (Mushawara)
Ummah Party
Islamic Party of the
Philippines
Regions IX and XII* Marawi City
Lanao del Sur and Lanao Marawi City
del Norte
Lanao del Sur, Lanao del Marawi City
Norte, Maguindanao,
Basilan, Sulu, Tawi-Tawi,
Zamboanga del Sur
Lanao del Sur, Lanao del Marawi City and Iligan
Norte, City
Island of Mindanao, Sultan Kudarat,
Basilan, Sulu and Tawi- Maguindanao
Tawi

*Ompia Party was registered before the establishment of the ARMM. At that time the Provinces of
Maguindanao and Lanao del Sur were part of Region XII, and the Provinces of Basilan, Sulu and
Tawi-Tawi were parts of Region IX.

Source: Commission on Elections

“Political parties and
candidates offered no
real platform or
positions on issues
affecting the ARMM as
basis of voters in
selecting the candidates
they would vote.”
• No regional political party won election in the ARMM. All elected regional
governors were candidates of national political parties in power. Vice Governor
Mahid M. Mutilan, the running mate of Governor Parouk S. Hussin, won in
the November 26, 2001 election as Lakas NUCD-UMDP candidate.
Seemingly, being an administration candidate is insurance for victory. This is
probably the reason why candidates would lobby for Malacañang backing.
Even in the RLA no regional party had ever captured majority seats.
• Political parties and candidates offered no real platform or positions on issues
affecting the ARMM as basis of voters in selecting the candidates they would
vote.

• The MNLF boycott of the last election could have been precluded if the MNLF
transformed itself into political party after it signed the 1996 peace accord.
Having strong political party, the MNLF would no longer need Malacañang
endorsement to win the election, and it can even bring out as election issues
the alleged failure of the national government to implement fully the 1996
peace agreement.

CIVIL SOCIETY

• Civil society involvement in the election process in the ARMM is weak. In the
last election; there were NGOs who came out with manifesto for clean and
honest election; others were engaged in voter’s education; and few acted as
watchdogs during voting, counting and canvassing of votes. All these efforts
were done at the local level with no regional network that coordinates their
activities.
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 • NGOs efforts were usually done little bit too late. For example, the voters’
education training was done in mid June less than two months before the
August 8 election. For civil society groups to be effective, their advocacy and
voters’ education programs should be continuing process. “The problem of
generating active civil
• The problem of generating active civil society involvement during elections is society involvement
the perception that the ARMM was meant to fail from the beginning coupled during elections is the
with the opinion of many that it is not the solution to the Bangsamoro problem. perception that the
The poor performance of the ARMM in addressing issues of good governance, ARMM was meant to
delivery of services, corruption and the rule of law for the last fifteen years fail from the beginning
reinforced these perceptions. coupled with the
opinion of many that it
CONCLUSION AND RECOMMENDATIONS
is not the solution to the
Bangsamoro problem.”
Credible election is not only necessary for legitimacy of elected officials but
essential for people to trust and have confidence in the ARMM as political institution.

The growing cynicism on the electoral process in the autonomous region is

“Credible
not without basis. And because of this there is need to reform the election process in
areas of administration and management of election, political parties, and civil society
election is not only
involvement – the three important pillars to attain credible election process. necessary for legitimacy
of elected officials but
Below are some doable recommendations, if implemented before the 2008 election essential for people to
(if it will not be postponed), will contribute to the efforts of achieving strong electoral trust and have
system and credible election in the ARMM. confidence in the
ARMM as political
• Elections in the ARMM should be held on fixed schedule as provided by law. institution.”
The national government should stop the practice of postponing election
schedule.

• Election of provincial, city and municipal officials of the component provinces

and city of the ARMM should be synchronized with the election of the regional
officials.

• The COMELEC should modernize the election process. The use of antiquated
system of casting, counting, canvassing and reporting of votes provide wide
range of commission of malfeasance acts that undermine the credibility of the
electoral process.

• Encourage the organization and strengthening of regional political parties to

articulate and push for ARMM agenda. Regional political parties with
constituencies both in and outside ARMM areas cannot focus on the needs
and aspiration of the people of the ARMM, likewise continuing reliance on
national political parties will not be very helpful because the national parties
have to attend to the interests of their larger constituencies.

• Support the organization of regional networks of civil society groups that can
undertake programs on voter’s education and serve as watchdog during voting,
counting, canvassing and reporting of votes.
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