07 - The Case of The Cordillera

PhilippineJournal ofPublic Administration, Vol.
XXXI, No: 2 (April 1987)
The Case. of the Cordillera: .
An Unresolved National Question
. HoLLIE BuENDIA
With the imposition of the unitary Philippine state on the Cordillera peoples,
policies were implemented which placed ancestral lands into the hands of local and
foreign capitalists. The poverty caused by the plunder of the land's 'natural resources,
. as well as ill-conceived development. projects and efforts to supplant the indigenous
political system, further marginalized the [gorots and made the Marxist option an
attractive alternative. However, instead of uniting the Cordillera peoples. the dogmatist
approach of the CPPNPA to the Cordillera problem led to the formation of a rival
political group, the Cordillera People's Liberation Army. The Philippine government
must recognize the existence of a Cordillera nation. A political reorganization of the
Philippine unitary state into a federal type ofgovernment is therefore recommended.
introduction
The problem in the Cordillera constitutes an unresolved national
question deeply rooted in its being a territory qomposed of a distinct people
with unique characteristics.
This paper attempts to provide benchmarks for our policy makers and
other interested individuals, parties, or groups to a better understanding of
the issues and problems in the-Cordillera. Though each part of the paper can
still be more fully developed, the issues and salient features of the minority's
struggle in the Cordillera is initially presented. The paper, however, does not
assume to be conclusive in any respect but merely attempts to influence
political decisions that may affect the lives and the future of the people in
this part of the country.
The author tries to explain the realities in the Cordillera from a
historical perspective, for the present predicament can be traced from its
past. Though anthropological studies can equally explain the roots of the
Cordillera problem, the' constraints encountered in the process of research
in effect Iimits the study.
The. paper tries to formulate a vision and a theoretical framework that
would explain the Igorot society as' a whole. It. is of the belief that only
through a concrete approximation of the reality can we formulate plans and
*MPA student, College of Public Administration, Uniyersity of the Philippines.
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158 PHILIPPINE JOURN'AL OF PUBLIC ADMINISTRATION
programs that would be responsive to the needs and demands of our people.
The effectiveness of any government policy therefore lies in its ability not
only to promote "national progress" but to secure the future of people's
lives.
Scope and Limitation
This is a study of the Igorot's struggles for autonomy and equality as

a people and as national community living in a well-defined territory. It
covers the historical creation 'of the Igorot minority and their relentless
determination to defend their homelands and preserve their culture and
social systems from repeated attempts by foreign and national governmerits

to subjugate and assimilate them into the latter's systems and lifestyles.
The study, likewise deals with the Igorots' indigenous political economy
as reflected in their concepts of land use and ownership and the bodong
system as a form' of self-government. This socio-economic-political system
accounts for the failure of several governments to gain a substantial influence
on their way-of-life.
A number of policies and development programs implemented the
Philippine government in the Cordillera are lengthily discussed and analyzed
from the viewpoint and interest of the minority ..
The role of the revolutionary organizations in the Cordillera is likewise

tackled in relation to the Igorot's struggle for self-determination. And
finally, a vision and a theoretical framework of indigenous socialism as a
social system practiced and developed in the Cordillera is presented, The
recognition of this indigenous system is envisioned to provide a' more
realistic perception of the Igorot society" and thus provide a better political
solution to the national question.
Considering the physical and time constraint under which this study
was made, the discussion on thePagta ofthe Cordillera Bodong1 which has
now become the working paper in the establishment of a Cordillera Autono-
mous Government was not done. Likewise, the analysis on the proposed
regional autonomy for the Cordillera was not made. the author recognizes
that these issues are equally important in the framing of alternative solutions
to the unresolved national question in the Cordillera. However, unless there
is a deep and extensive understanding of the Igorot social system, the
proposals will remain on the drawing board.
/
Cordillera: The Land and the People
Cordillera is a Spanish word meaning "little cord." It is generally used

in geography to mean a series of parallel mountains that run along.the back-
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THE CORDILLERA QUESTION 159
bone of a continent or an island like a twisted cord. Cordillera therefore

refers to a similar geographic formation in Northern Luzon.I It is charac-
terized by a series of mountains parallel to each other.
The Gran Cordillera ("big little cord ") rises abruptly from the sea at
Pasaleng on the boundary of Cagayan and IIocosNorte Provinces. It quickly
rises to a height of 7,000 feet dividing Apayao from IIocos Norte, and then
to Kalinga, with peaks reaching to 8,000 feet. These continue southward
through the province of Bontoc until they reach a peak of 9,600 feet (26
meters shy of the country's highest, Mt. Apo) on Mount Pulong in Benguet.
Then they descend to the plains of Pangasinan, through a spur about 5,000
feet high called the Caraballo Sur, runoff to the southeast of Baguio and
divide the province of Nueva Vizcaya from Nueva Ecija. 3 The whole area is
so ruggedly mountainous that in terms of land mass, the Gran Cordillera
fonnsapproximately 1/6 of the total land area of the island of Luzon."
Located in this land mass are the mountain provinces of Kalinga, Apayao,
Mountain Province or Bontoc, Ifugao, Benguet and Abra.
The whole area of Cordillera is rich in natural resources. Its mountains

used to be. thickly forested before commercial logging corporations denuded
much of the forests. Its mossy pine, and hardwood forests provide the back.
drop of many plants and animal species and likewise serve as watersheds for
great rivers and waterways which flow from the uplands down to the
lowlands. Aside from land, forests, and rivers, mineral resources have been
bountiful. Among the metallic resources found in ,different parts' of the
Cordillera are gold, silver, copper, zinc, molygdenum, manganese, cadmium,
tellurium, iron, and chromite. Among the non-metallic resources found are
limestones, pyrite, silica, cement, clay, coal, guano phosphates, gravel and
stones. 'Uranium, on the other hand, has recently been discovered in Mongga-
yang, Kiangan, and oil has been reported in Natonin-Paracelis area and other
parts of the Cordillera. s
Filipinos born on the Gran Cordillera Central are generally or collectively
known as Igorots, but it might be more accurate to refer to them according

to their ethno-linguistic groups - Ibaloi in southern Benguet to western
Mountain Province, Bontok in Bontoc, lfugaw in Ifugao province, Kalinga in
the province of Kalinga, Isneg in the province of Apayao and Tinggian (or
Itneg) in upland Abra. Aside from these major groups, there are still smaller
but distinct ethno-linguistic groups.
Although the Igorots belong to different groups, they nonetheless

share a common. history - their ancestors resisted assimilation into the
Spanish Empire for, three centuries. This impregnable bastion which the
Igorots built against' foreign invasion and subjugation has consequently
preserved their way of life which remained uniquely and distinctly Filipino.
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160 .PHILIPPINE JOURNAL OF PUBLICADMINISTRAl'ION
Nonetheless, the indigenous Eilipinocultureain the Cordilleras did not

in the main, remain undisturbed during the three centuries of Spanish
domination nor were the Igorots completely insulated from or unaffected
by. what was happening.to their' neighbors. Yet they were never really
absorbed into that Christianized, tribute-paying society which "hispanized"
this country. /
The Igorot Minorities: Its Historical,Creation
Philippine history is virtually a history of the colonized peoples. We

take pride in our history of colonialism, in the Filipino heroes who displayed
acts of patriotism and nationalism in the interest of freedom, and in the
romantic sacrifices we offered to the motherland.
Ironically, the history of the uncolonized peoples, which we now term

as the "cultural minorities" was lightly or never written of at all. Their
history as a people and as a nation, however, remains articulated only in
their oral traditions, myths, folklores" and legends. Although our historians
made limited attempts to chronicle their historic existence in this country,'
there are. few written records which could perhaps convincingly attest to
.their iegacy.
Viewed from this perspective, itis clear that our history is a dichotomy
'of the majority-minority peoples: The majority who have been successfully
subjugated by a .string of colonial powers and who have become willing
pawns and conspirators in the establishment of a colonial system; and the
minority peoples who have stubbornly resisted assimilation by foreign
powers by indefatigably continuing the struggle for self-determination.
The perception of the majority peoples that the minorities are

culturally and historically apart from ,the societal mainstream is a product of
a chauvinist consciousness, a false feeling of superiority. For centuries the
minorities have been treated as ethnographic artifacts -: anachronistic
survivals of a bygone race. This unjust treatment runs parallel to the manner
which the ina.iority peoples were treated by their colonial masters.
The creation of the Igorots as a minority has its historical roots
which dates back to the direct colonial. rule of the Spanish empire. These
Filipinos called ethnic minorities retained more of the culture and customs
of their ethos, or "tribe" than their colonized brothers who outnumber
them. They scarcely appear in Philippine history books simply because they
lived outside of Spanish control and only show. up in the Spanish records as
outcasts, brigands, and savages. Because the Igorots, making good use of the
. rugged. mountainous terrain, defended their freedom, from the Spanish
aggression at all costs they were referred to as the feroces. Thus, the Igorots,
April .
except for some areas in Benguet and Abra, generally did not experience
Spanish colonial rule. Asa consequence, they were able to retain much of
their indigenous ethnicity apart from the colonized sectors who lost much of
their distinct traditional lifestyles and became more like their masters.
In the lowland barangays, however, under the onslaught of the sword

and the cross, centralized colonial order was slowly accepted. The Igorots
then became the minority vis-a-vis.the colonized majority.
The majority-minority distinction therefore emerged only because of

the differential colonial experience. In the process of colonialism, the
Spaniards to rule effectively, steadily divided the Filipino people. The
lowlanders were conscripted as soldiers in the punitive expeditions waged by
the colonizers against the Igorots. The divide-and-rule tactics institu-
tionalized by the Spanish conquistadores thus laid the foundation for the
wedge between the Filipino majority and the indigenous national minorities.
As the colonized people modified their native customs under foreign

domination, i.e. attending mass, paying taxes, obeying Spanish laws, going
to war when the government said so, the Igorots of northern Luzon conti-
nued to resist Spanish assimilation and refused to submit to foreign domi-
nation. The existence of two types of Filipinos led the Spaniards to
categorize our people into two - the submissive and the unsubmissive, the
faithful and the faithless, the good and the bad. 6 The Igorots belonged to
the latter group, while the former were called the indios.
Towards the end of the Spanish colonial rule and even towards the
direct rule of succeeding colonial masters in the country..the indios adapted
more of their conqueror's culture .and ways of life. In the process, they
-became more and more like each other and less and less like their ancestors.
/ Conversely, the Igorots, together with the other freedom-loving Filipinos,
. preserved more of the culture of their ancestors and came to look less and
less like their acculturating neighbors. In this way a cultural minority was
created who retained their traditional lifestyles .
The Defense of their Homelands: A Historical Account
The Spanish Period

It was the search for gold and other precious metal reserves which
brought the Spanish conquerors in the archipelago. It was also this same
purpose that drove out both the Spanish colonialists and their Filipino
co-conspirators to fight the Igorots gain control of the Cordillera.
Some of these military expeditions were able to encroach into the

Igorots' defenses, suchas those ofQuirante and Monteforte which occupier'
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162 . PHILIPPINE JOURNAL OF PUBLIC ADMINisTRATION
the mountains for a year. In the main, however, the Igorots were able to
repulse these incursions on their .land. Unrelenting' harassments on the
Spanish encampments by the Igorots became very costly for the conquerors .:
Spanish supply lines had to be constantly guarded while lowland conscripts
who deserted en masse due to Igorots' attacks had to be replaced by paid
recruits from the lowlands? .
The people of the Cordillera persistently fought the Spaniards to a .

stalemate up to the last years of armed attempts to subjugate them. So rare
and exemplary was their courage that the lowland conscript was shocked at ,
the stoicism of Igorots before Spanish muskets and artillery fire. It was a war .
where arms never played a decisiverole, It was the tenacity that spelled the
victory for the Igorots. . .
Together with' military campaigns, Christianization efforts were also

used to penetrate the Cordillera region. In 1584, an attempt to proselytize
Igorots coming down to Tagudin was made by a certain F'. Esteban Marin.
In 1588, another proselytizing attempt was made by Fr. Jeronimo Martinez.
However, these efforts produced few lasting converts due to the tenacious
resistance of -the Igorots against Spanish troops and explorers. In 1571,
resistance by the Igorots to proselytization culminated with the oeheading
of Fr. Agustin Nino, the friar of Baratao. (Bauang).8'
The American Period
The reasons which attracted the Spaniards' into the Cordillera were
virtually the same reasons which brought the Americans to it, namely,
mineral wealth. As early as the 1880s, American mining prospectors and
surveyors were able to see and confirm the existence of gold, silver, and
copper deposits in the land.? .
Although both colonialists had the same economic interests in the

Cordillera, the Americans applied the sugar-coated approach to subjugate
"
the people of the Cordillera. They chose the softer methods' of persuasion
and worked within the minds of the Igorots to' gain control over their
resources. They tried to pacify the Igorots and make the hitter submit
themselves to colonial rule through education.
The American-educational system proved very effective not only in

debilitating the capacity of the people to resist colonialism but in strengthen-
ing the economic foothold of the Americans in the Cordillera. The. Igorots .
then slowly adopted the American culture, learned to patronize American
products, .accept the establishment of American corporations, and identify
American interests as theirs. This resulted then in the gradual loss of the
people's cultural identity and instilled confusion between the new orienta-
tion and traditional cultural values.
April
THE CORDILLERA QUESTION
Anticipating a prolonged stay in the Cordillera, the Americans

163
constructed roads and bridges which led to mine sites. This facilitated not
only the flow of American goods but also of military forces which were used
to subdue lgorots' recalcitrance. A system of government, law and
ordinances was a 'likewise institutionalized to govern the "non-Christian
tribes. "
The Americans wittingly laid the legal foundations to dispossess the

Igorots of their lands. By the end of American period, capitalist enterprise
in the Cordillera was firmly established. The mining industry which the
Spaniards failed to secure during, their time was successfully placed in the
control of the Americans.
The Americans were relatively effective in reducing the resistance of

the Igorots to a manageable level. However, harassments and sporadic attacks
against American corporations, camp sites, and government installations
continued to be staged by the mountain people.
The Japanese Occupation
In 1941 the Second World War broke out ending direct American rule.
The Igorots found themselves fighting the Japanese aggressors but this time
with their brothers in the lowland. It was at this time in the history of
Cordillera when the Igorots fought, for the survival not of their race but of
the Filipino nation. As the War ended in 1945, the Igorots continued to fight
for self-determination and absolute democracy, but this. time it was directed
against internal colonialism waged by the Christian nation.
Land Use and Ownership in the Cordillera
The umbilical cord which ties the Igorots to their land and their
passionate defense for :.t in over centuries of colonial rule has definite
cultural underpinnings. The wide array of beliefs, value systems, technolo-
gies and social institutions developed thousands of years prior to any
conquest reflect the ethnicity and environment of the Malay Filipino. This
has been for more accentuated on the indigenous concepts of land. To quote
martyred Kalinga tribal leader, Macli-ing Dulag:
To claim a place in the birthright ofevery man . . . To work the land is an obliga-
tion, not merely a right. Land is a grace that must be nurtured, enriched, made to bear
fruit. For us indigenous peoples, ancestral land is literally life, our continued survival
as viable communities JlJ1d distinct cultures with our brand of indigenous ethnic
identities [depend on it] .1 0 (Italics supplied).
In a separate study made by William Henry Scott on pre-hispanic

societies, he stated that these societies did not have any concept of real
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164 PHILIPPINE JOURNAL OF PUBLIC ADMINISTRATION
estate ownership.l ' Land itself is the property of supernatural personalities

whose permission must be ritually secured for safe and fruitful use. The
products of the land, however, are owned by those who grow them. Fish and
game taken in group enterprises are divided equally among the participants
and their dependents, or according to an
agreed schedule which recognizes
division of labor, risk, or leadership.
One article aptly described this relationship:
To the Igorots, his ricefields were only less sacred to him than his gods. Aside from the
land actually under cultivation, there is no 'private property in this section of the
Mountain Province. The hills are his to roam over; the forests are his to collect firewood
.from; the water is his to irrigate his lands with and provided he takes it from no one.
else.12 . ' .
,
The land use patterns of the Igorots have remained basically unchanged
since as far back as the people can remember. For the Ibalois (or the Igorots
residing in Benguet), as Pawid describes, land is considered as a resource
which must be shared reciprocally with his gods, ancestors, kindred, and
future descendants.U He is. not the "owner" of the land but rather a
steward. It, is from this land where he obtainshis livelihood. His right of
stewardship or use of the land is established by whoever is the first to till,
mine or pasture on it. 14 What he owns is actually the proceeds or harvests
from the land where he invested his time and labor in fructifying the soil.
Rights to the land, however, are not limited to the living but include
the beings of the spirit-world who equally have the right and responsibility
to protect the natural world from human greed, because greed would result
in .the withdrawal of the god's favors." 5 The living man has to sacrifice
animals in elaborate rituals and rites (called canao) in honor of the gods and
.spirits before embarking on such activities as hunting, digging for mines, or
tilling the soil. .
The Kalingas speak of the god Kabunian as the owner of the land. Even
lands for residential purposes are not called pita or land but are referred to
as Iii or village.
The concept of land ownership has been. clearly enunciated by no less

than the late pangat (village leader) Macli-ing Dulag, to quote: 16
To claim a place is the birthright of every man. The lowly animals claim their
place. How much more man? Man is born to live. Apo Kabunian, Lord of us all, gave us
life and placed us in the world to live human lives. And where shall we obtain life? From
the land. To work the. land is an obligation, not merely a right. In tilling the land, you
possess it. And so lan.d is a grace that must btl nurtured, to enrich it is the enternal
exhortatiori of Apo Kabunian to all his children. Land is sacred. Land is beloved. From
its womb springs our Kalinga life. (Underscoringsupplied);
April

Most of the lands of the Igorots have been traditionally, held in

common and are not encumbered by strictly private claims of exclusive right
of use. "Ownership" applies to the tribal right to use the land. Ownership
is tantamount to work. If one refuses or creases to work, his claim to 'owner-
ship likewise ceases. The' Igorots consider themselves as "secondary owners"
or stewards of the land while the beings of the spirit-world are the true and
primary owners of the land. 17
"Property" then generally applies to the things which involves labor or

the things produced from the exertion of labor. "Communal ownership"
on the other hand connotes the collective right' of the members of a
particular tribe to freely utilize their own sources for the benefit of the clan,
the village, or the tribe.
The general absence of private ownership of land in the Cordillera

indicates the existence of an indigenous integrated level of development
among the Igorots. While it. is true that petty plutocracies'f did emerge
among the Ibalois, their authority remained localized. Likewise, the
emergence of. the "wealthy" class (known as kadangyan in the Ifugao,
Bontok, and Kankanay languages and baknang in Ibaloi) in the Cordillera
,did not create any undue concentration of wealth due to intermarriages
within and between villages thus redistributing whatever surpluses they may
have had to the villages and other tribes.
The indigenous concept of the Igorots that "no man can own any
land, but the land owns every man to which "he returns when he dies"
underlies their value on land use and land ownership. This has been the same
value of communalism and passionate attachment to their land that success-
fully drove all transgressors out of their homeland.
The land use patterns of the Igorots, moreover, had provided a strong
kinship structure. Families and clans are tightly knit as social units by force
of necessity and the exigency of tribal life. No member of the family can
live independently of the clan, the village or the tribe for it is only through
collective living can life thrive.
The Persistence of the Indigenous Political System.
What is probably the most democratic form of land tenure in the world
is matched by the practice of a similarly pristine democracy in other spheres
of Cordillera social life.
Direct democracy is observed in the process of public decision-making.

Communal decisions are made' directly or by the collective power of the
council of elders in the iii (village) rather than by individual leaders.
1987
Although there are variations in the democratic process, the general method
always involves the direct participation of the village assemblies.
In Kalinga, clans are, represented in the ili by elders or papangat or

peace pact holders during multi-faceted decision-making. There is no
political authority in the Western sense. There are only "respected elders"
and bright young men who speak for the best tribal interests and whose
opinions are heard over government officials. Decisions in the village are
then arriveu at through democratic processes among the elders.
The peace pact or bodong or vochong represents the political institu-

tionof the Kalingas. It has been the instrument whereby papangat of two
villages establish laws and agreements with which to govern their respective
rights to the use of the land and its resources. For the people, the bodong is
the law and a means by which peaceful relations are maintained among the
different Kalinga tribes. .
In Bontoc, the ator serves as the functional organization of the. people

.in the management of their political,economic and socio-cultural affairs. It .
is the center for village activity and decision-making of the Bontok elders.
Bontok councils are held in the various ward centers where" although power-
ful personalities exert more influence than others, a consciously egalitarian
concept moves peers to curb the self-interest of the more powerful among
them. Bontok cases are heard in ator assemblies of elders where personal or
kin interests are subordinated to the common weal.

In Ifugao, the role of the munhalongis are central to the observance of
the Ifugao custom law. The munkalon is called upon by the people to hear
cases of theft, killing, violations of religious taboos and other crimes. It acts
as a judge and/or mediator in' settling disputes in the village. Its singular
role in maintaining peace and exacting justice within the village and among
tribal communities places the munkalon in a high social esteem.l?
In Benguet, the councils of old men called amam-a ordaUakay repre-

sent the indigenous political institutions where customary laws are kept in
perfect form. Village decisions and settlement of disputes are made in such
gatherings called tongtong where litigants debate on issues and concerns
affecting them. 20 Tongtong are usually called upon whenever disputes
among individuals or clans affect the peaceful existence of the tribe. The role
of the amam-a or dallakay and of the village assemblies are crucial since
the safeguard of the decisions made rest upon them.
For the Ibalois, the baknang is the powerful leader in the village. His
influence extends over clans and his word holds great weight in matters
concerning the welfare of the people. As with the Ibaloi boundaries, the rights
April
to certain areas are established through inter-village alliances in a formalized

and elaborate socio-political system. The bodong establishes the bugis
or territorial boundaries between tribes. Violations of the collective rights
between tribal territories are sanctioned and can even lead to tribal wars. 21
Apparently, the people of the Cordillera still consider their indigenous
political organizations as basic to their village life. While the Christian
bureaucracy has been established to govern the Igorots, its political network
failed to penetrate to indigenous practice of the non-Christian tribes. The
people continue to adhere to traditional systems of political organizations
which exist autonomously and beyond the control of the national govern-
ment. The Igorots' traditional political system still remains as the primary
means by which social control is maintained in the village. It has effectively
served as a venue for genuine democratic participation in decision-making.
The bodong system, known by various terms among different tribes.in

the Cordillera, is considered as a classical form of Igorot autonomy. 22 .
Tribes relate with their neighbors and visitors according to well-defined
laws through the bodong system' which is more binding than laws made by
the government. ' .
The bOI :ong system is traditionally' a bilateral peace .arrangement

between tribes. The peace pact is enforced and maintained by the peace
pact holders of both tribes. In Kalinga, it is called the pangat. The peace
, pact holders are also tasked to encourage trade and commerce between tribes
and even allow inter-tribal marriages apart from the maintenance of peace
and friendship. In the event that the bodong is violated by either parties,
the peace holders of both sides are 'obliged to either take revenge on the part
of the aggrieved party, or punish the. assailant according to tribal laws on
the part of the adversary tribe.
The possible dangers and damages that may be inflicted into the lives
and properties as a result of any tribal wars has provided the people the
moral values of behaving collectively in many aspects of village life. The
responsibility of the people to maintain and perserve peace in their village
rests not in their leaders but essentially in the people themselves.
The restoration of peace pacts and goodwill between villages is done in

a simple way. The village which broke the peace pact will have to initiate
the renewal of the bodong by inviting the people from the aggrieved village
to their village and offer a feast that would last for weeks. In return, if the
aggrieved ,village is amenable to restoring the bodong, they will have to offer
the same feast as a sign of acceptance. .
The social structure of villages in the Cordillera embodies democracy.

While the bodong system represents the political institution of the Igorots,
1987

it is through the village assemblies where the guarantee of fullest democracy
is assured at the grassroots level.
The organization of the Kalinga-Bontoc Peace Pact Holders Association

(KPA) in the 80s to resist the construction of the Chico Dam is a product
of a. traditional bodong system struggling against external forces trying to
destruct both the autonomy and existence of the villages. The KPA is the
conscious. transformation of the traditional bodong system systematically
fighting a well-organized institution of the 20th century. It has transformed
itself into a multilateral peace pact arrangement among the Igorot tribes in
the Cordillera. It now represents a collection of bilateral agreements which
the. traditional bodong 'originally represented. It also bears the executive
ability and sense of direction as a system defending the cultural and econo-
mic interest of the people. As Kalinga pangat Ama Yag-ao has stated:
By the formation of the KPA peace pact has come to add to the existing custom-
ary task a charge of punishing anyone who .have collaborated with the promotion or
construction as equally as.the killers and the injured. (sic)
The KP A therefore is a new federation of autonomous villages in the

Cordillera formed from the indigenous bodong system. This' is a formidable
political force of the Cordillera not only in the maintenance of peace among
. tribes but in the defense against common enemies who might try to subvert
their national interest and survival.
Policy of Internal Colonialism

The attempts to subjugate the Igorots of the Cordillera has been trans-
lated' in a litany of laws and legislations by the colonial administration
including the present government. These impositions of the unitary state
or "internal colonialism" has had serious implications on the people's
lives, most especially on land ownership and political subdivisions of their
territory..
Land Policies
The attempt to disposess the people of Cordillera of their ancestral

lands dates back to the time of the Spanish colonial regime:
As a colony of Spain, the whole Philippine archipelago was declared

to be the property of the King of Spain. 23 Consequently, all ancestral lands
were considered as part of the public domain unless the occupant possessed
a land title as a proof of private ownership.:
The Spanish monarchy instituted a system in which all lands were

required to be titled under the Torrens Title as a sign of land ownership.
April

":.?~
This was done to establish prior rights and security of ownership for the
people. This imposition has by one stroke taken away from the Cordillera
peoples their age-old ancestral lands and have made them in effect aliens
in their own homelands. However, the attempt to alienate the Igorots from
their land through fiat never succeeded not only because the concept of
private ownership is anathema to them but primarily because of their strong
concept of territoriality. And this concept of territoriality underlies their
belief that it is their Kabunian who truly owns their land.
During the American period, the Igorots lost their lands as the
American government declared their lands as reservation areas and opened
them for cultivation to ,the lowlands. Aside from the procedures of home-
steading,24 American laws further provided for the free granting of patents
to original occupants and cultivators of the land. 25
Subsequent laws were passed which were totally incomprehensible

concepts to the people of Cordillera, where land is owned communally
or by prior right of use and usufruct.
The Igorots under the Philippine Republic did not find themselves any
better. In fact, land problem issues worsened. More laws and. policies were
formulated and enacted that intensified the exploitation of their resources
and expropriation of their land .
The various presidential decrees and proclamations dispossessed
thousands of families of their lands. For instance, the Ambuklao-Binga
Watershed Reserve took 123,000 hectares of ancestral lands. In the
Mountain Province, a forest land with an area of 5,,513 has. was converted
into a national park known 'as the Mt. Data National Park. 26 In Kalinga-
Apayao, the Balbalasang National Park assumed an estimated 20,000 has.
of virgin forest. 27 ,
Aside from the conversion of the Igorots' land into reservation and
national parks, the State likewise allotted their lands for the use of the
"military. Camp John Hay, a US Air Force Base occupies 697,479 hectares
in Baguio City, while the Philippine Military Academy in Loakan, Baguio
has 363 hectares. Loakan residents, mostly Igorots, were forcibly evicted
by the Benguet PC Provincial Command.P
By far the most oppressive land policy inflicted upon the people of
the Cordillera is embodied in the recently approved Constitution. Article
XII Sec. 2 of the 1986 Constitution states: .
All hinds of the public domain, waters, minerals, coal, petroleum and other
mineral oils, all forces of potential energy, fisheries, forest or timber, wildlife, flora, and
fauna, and other natural resources are owned by the State." (Italics supplied).
1987
170 PHILIPPINE JOURNAL

t .
OF PUBLIC ADMINISTRATION
The Philippine Republic is now mandated by the fundamental law of

"the land to assume ownership over all lands of the Igorots in the Cordillera.
"This is a gross violation by the State on the indigenous concepts. of land
"" ownership, property rights, and land use.
Section 5 of the same Article prates about the protection of the "rights
of the indigenous cultural communities to .their ancestral lands" subject to
the provisions of the Constitution and national development policies and
programs. The protection of the State upon the rights of the minorities over
their ancestral lands has already been" emasculated by the' provisions of
Sec. 2 of the same Article. Likewise the Constitution has explicitly stated
that the protection of the minority rights shall be subject to the national
development programs and policies and to the provisions of the Constitution
itself. This simply means that over and above the protection of such rights,
the Constitution and the national development programs shall be primordial.
This in effect is a concrete manifestation of the unjust imposition of unitary
, policies based invariably and solely on the interest of the majority people's
standard.
By and large the policies on land, promulgated from the. Spanish
colonial regime arid under the regime of the colonized Filipino people never
recognized the rights of the Igorots over their communal' lands and"forests.
Moreover, the unitary policies imposed by the State rather than alleviating
the impoverished condition of the minorities, had contributed only to their
further oppression and exploitation.
Development Policies
The Gran Cordillera is the righest region of Northern Luzon. However,

the Igorots remain impoverished. This has been, so not because of the dearth
of development programs and projects in the Cordillera but because the
queue of development programs arid policies were not really designed to
"improve the material condition of the minorities.
History is replete with examples of "development" projects imposed
upon the Igorots. As early as 1948, the government implemented the Agno
River Basin Development Project which provided for the construction of the
"Ambuklao and Binga dams. As a result of the construction, an old Ibaloi
settlement of 300 families from Atok, Bokod, Buguias, Itogon, Kabayan and
Kibungan were displaced and some 650 has. of prime ricelands were sub-
merged in water. 29 Moreover, "just compensation" on their land is still to
be fully paid, surviving even the Ambuklao dam which today, after 38 years,
is no longer operational. '
A more recent example is the Chico River Basin Development Project

(CRBDP). The main objective of the CRBDP was the construction of four
April

hydroelectric plants to be located along Chico and Pasil Rivers in the

Mountain Province and the sub-province of Kalinga. The total catchment
area will be 3,419 square kilometers, submerging 27.53 square kilometers
of land, in order to generate a total power potential of 1,010 megawatts per
year. Of the four dams, commonly referred to as Chico I, Chico II, Chico
III, and Chico IV, two were to be located in the Mountain Province (Bontoc
and Sadanga) while the two other dams will be constructed in Kalinga(Basao
and Tomiangan).30
The government did not seem to understand that with the. construction
of Chico II" three barangays would be directly .affected - Anabel, Tococan,
and Betwaga, destroying 500 houses and rendering' about 3,000 natives
homeless and flooding 120 has. of ,fertilE! lands. Chico IV would directly
affect six barangays, making 672 families homeless and flooding
P31,500,000 worth of fertile ricelands-l! and indirectly affect some baran-
gays, 300 families and flood some P38,250,000 worth of ricefields.
Chico III on the other hand, would affect the barangays of Tinongdan
and Dalupirip. Its construction would affect the lives of 1,160 inhabitants
of Tinongdan and 152 families of Dalupirip. Some 2,200 has. of fertile lands
will be submerged and thousands of houses will be washed out as a result o~
the proposed dam. .
The social implications of this project are unimaginable. If economic
gains can be easily measured, the unquantifiable aspects of the project would
lead us to ask whether the government has the right to eminent domain
over the lives, religion and culture of all the tribes in the Cordillera.
Another resource being exploited by the government in the interest

of "national development" is its forest resources. In line with the interest
of the government to answer foreign demands for logs and timber, it has
been granting 'concessions and timber licenses to local and foreign companies
to exploit the virgin forests of Northern Luzon.
To date, the biggest concession granted to a private company is that

with the Cellophil Resources Corporation (CRC). The concessions were
granted in 1973-74 to Marcos crony Herminio Disini, who had among his
corporate investors several Swiss firms and Japanese multinationals such
as Mitsubishi Rayon, Marubeni, and Dauce.l?
The Ministries of Agriculture and Natural Resources (now Departments),

issued CRC a logging concession good for 25 years and renewable thereafter
in the areas of Abra, Kalinga, Bontoc, and .llocos Norte with a total land
area of 200,000 hectares. Most of the said area is situated in Abra - covering
11 municipalities and seven lowlands-or eighteen out of 27 municipalities.
1987
, .'
The logging venture violates the basic concept of property of the

'minorities, viz., the indigenous use of resources and communalism. The
CRC's entry invites outsiders and employees of CRC to stay and roam
around the localities,thus trespassing. into the Igorots' ancestral 'lands
where no recognized peace pact. exists between the minorities and the
'employees of the CRC. This in effect disturbs the peace and order situation
in the area.
Another is the issue of maintaining and promoting the ecological

balance in the Cordillera. The use of'the rivers for long transport of ,logs
will undoubtedly pollute and disturb water ecology. It will kill and drive
away aquatic animals and plants and essentially affect the people's livelihood
especially those settlements . among the Abra river and its tributaries.
Furthermore, the massive cutting of trees in the aforecited areas will only
increase the incidence of landslides and floods as these areas will be wan-
tonly denuded. \"
The generation of foreign exchange for the government arid profits

for the private companies in 'the logging industry has impoverished the
Igorots who live in the forests of the Cordillera. Many of the concessions
encroached upon the ancestral: lands and little account had been taken of
the value of the forest to the lives of the people especially in defining the
boundaries of these concessions.
Mineral resources have also not escaped exploitation in the name of
national development. Like the logging industry, support by the government
to the mining industry in the Cordillera has been equally substantial. The
industry has been rehabilitated after the war with a government rehabilita-
tion fund of $30 million, one third of the amount going to. mining firms in
Benguet. By 1953, the mines had been put back in operation led by the
Benguet Consolidated Mining Company, the Atok Big Wedge Mining
Company, the Itogon Mining Company, the Baguio Gold Mining Co., and
the Lepanto Consolidated.U
The rapid exploration and mining operations' of metallic reserves in

the Cofdillera not only radically diminished available resources for the
country's industrialization but more. so had destroed the environment as
well as the homelands of the Igorots. Modern mining methods like open
pit mining, and underground tunnel mining disturbed the vegetation cover
and underground water resources. The ricefields of the people residing
within the vicinity of the mines were permanently damaged by 'the mine
tailings, which contained toxic substances like cyanides 'and acids. The
productivity of the land and irrigation channels were likewise destroyed
due to siltation out of mine tailings. Farmers who depended on their rice-
lands for survival experienced famine. Igorots who were displaced by the
April
operations were even prohibited from gold panning or engaging in small-

scale mining within the periphery of the concessions.
The Cordillera people's mineral resources, forests, rivers, and lands

and indeed their lives are sacrificed to the altar of the majority peoples'
development. The plunder of their natural as well as human resources have
been carried out by the majority peoples' government not only for their
own interest but to serve their foreign masters' interests.
Marginalization of the Igorots
As a consequence of the aforementioned policies, the Igorots of the

Cordillera were relegated to a state of marginality and bankruptcy. The
national government's policies on land grossly violated the indigenous
people's territorial prerogative and rights over their ancestral lands. It tried
to dismember the Cordillera ancestral domain and made the Igorots squatters
in their own lands. Additionally, the encroachment of infrastructure and
industrial projects in the Cordillera caused widespread destruction of agricul-
tual production, environment, and of watershed areas as source of irrigation
and consequently dimiQiShed 'to a large extent" food production. The
shortage of food in the. villages forced the people to beg for their survival
or to purchase/import rice and food items from the lowlanders at exorbitant
prices. Such a situation drove the Igorots deeper into the quagmire of
poverty and deprivation.
The dwindling agricultural area for food production and the expansion
of extractive industries, viz., mining and logging, into the Cordillera, had
slowly pushed the Igorots out of their land as the brewing industries pulled
them to serve as wage-earner miners and loggers. This push-pull factor then
essentially precipitated the destruction of the natural subsistence economy
in the Cordillera to pave the way for the steady growth of cash economy.
The Igorots are slowly being proletarianized as a result of "development."
The petty and small-scale producers have become "guild workers." Their
agricultural products which were normally produced for consumption are
now being converted into processed commodities 'to answer the demands of
the market. The Igorots of Cordillera who were previously self-sufficient
now live in poverty. The people who were formerly living in the security of
their homelands are now being dispossessed of their lands. The people who
were once living in autonomous self-respecting villages are now subject to
national oppression. And the people who were once living in peace are now
again at war.
1987
174
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PHILIPPINE JOURNAL OF PUBLIC ADMINISTRATION

The CPPNPA in the Cordillera: A Marxist Option
Brief Background
Inspired by the victory of the People's Republic of China against

.neo-colonialism, Jose Ma. Sison "re-established" the Communist Party .of
the Philippines on December 26, 1968 and the New People's Army(NPA)
on March 29, 1969 with National Democracy as its political Iine.J? Sison
was strongly influenced by the Chinese revolution and adopted Mao Tse-
Tung Thought, now spelled as Mao Zedong,as the guiding ideology of the
CPP in addition to Marxism and Leninism.
Sison. likewise imbibed . the electrifying experience of the Chinese

Cultural .Revolution in the 1960s to spearhead the Second Propaganda
Movement 35 and proceeded with. the task of exposing the root causes of
Philippine problems as UE:; imperialism, domestic feudalism and bureaucrat
capitalism. In the book, the Philippine Society and Revolution (PSR)36
written by Amado Guerrero (Sison's nom de guerre), he explained the state
of Philippine society, the motive forces of the revolution, and the strategies
in achieving victory under the leadership of the Communist Party, the New
People's Army and the National Democractic Front. Juxtaposing Sison's

book with the books and manuscripts written by Mao Tse-Tung, it is obvious
that a parallelism has been adopted by the former in analyzing Philippine
society. As such, strategies adopted were essentially the same.
The Struggle Begins
Armed with the Chinese model of liberation, the CPP-NPA penetrated

the 'wilderness of the Cordillera on December 1970. A squad-? of NPA
guerrillas composed of Igorots were sent as expeditionary force from Isabela
to prepare the groundwork for the eventual establishment of a guerrilla base .
. The guerrillas centered the Cordillera in Sabangan, Mountain Province,
traversing through the forested Mt. Polis (Mt. Pulog), and finally establish-
ing the first revolutionary base in Habboong, Banawe. This later expanded to
40 contiguous barrios, including the barrio of Uha, Banawe. Barrio Uha has a
special historical significance in the revolutionary struggle in the Cordillera,

because it was also here that the Hukbalah'ap 3 8 in the 1960s attempted to
develop it as their revolutionary base. The Igorots.: having no peace pacts
with the Christians, construed their sojourn in.the area as an act of intrusion
into their lands and completely wiped out the 100-man contingent.
Learning a lesson from the experience, the NPA painstakingly started

organizing the people of Cordillera using the indigenous socio-political
system as the backbone to gain strong foothold in the area. In a span of a
year, the squad was able to expand into a platoon (3 squads) with a mass
April
175
THE CORDILLERAQUESTION
base support from 40 barangays. This platoon then became the. general
formation of the NPA in Northern Luzon, aside from the regular mobile
force headed by renegade Lt. Victor Corpuz. Operational command in the
Cordillera then expanded into three - Mt. Province and Pangasinan, Ifugao,
and Benguet.
The success in organizing and consolidating revolutionary gains in the

Cordillera prodded the operational command to propose- to the Central
Committee of the CPP that a special region be organized for all Igorot areas,
using the Igorot's political structures and the bodong or peace pacts. This
proposal essentially worked on the premise that the Igorots' struggle for
emancipation can only be realized if the indigenous structures and concepts
of the people of Cordillera are utilized to serve the purpose of the revolu-
tion. The concept of an autonomous struggle of the Igorots for self-deter.
mination has thus been pronounced as early as 1971. However, this proposal
was rejected by the Maoist ideologues in the CPP, who felt that an autono-
mous struggle of the Igorots separate from their classic concept of national
liberation would loosen their grip on the Party organization.
The CPP in the Cordillera tightened its grip upon its cadres and stifled
any attempt from independent thinking cadres "to deviate from the policy
One of the party cadres who did so was SUbjected to the Party's disciplinary
action for defying Party decisions, policies, and directives, despite the fact .
that he suffered six years of military detention.l? Even among cadres and
comrades inside the detention cell, he was isolated and branded as "persona
non-grata" for his thinking. .
The Option Analyzed
The CPPNPA employs orthodox Marxism in its analysis of the Igorots'

society. The society is understood principally in terms of class struggle,
relations of classes to economics, and the forces of production and social
relations of classes to production. They have divided the Igorot society into
two classes - the exploiting class.and the exploited class with dialectically
opposing interests. From this class antagonism will rise what will essentially
"be the basis of a more developed society.
In a statement released by the Gil-ayab, the official publication of the

New Peoples' Army in Central Cordillera,40 class struggle in the Cordillera
is recognized as indispensable: .
Class contradiction is central to the question of revolution.
It is class conflict which propels society towards development,
and class antagonism which impels revolutionary change ... Yet
to negate class antagonism in the Cordillera betrays a Marxist way
of thinking. (Underscoring supplied.)
1987
176 PHILIPPINE JOURNAL OF P'UBLIC ADMINISTRATION

Such viewpoint finds its foundation in the Communist Manifesto where
Karl Marx wrote: "The history of all hitherto existing society is the history
of class struggle." Marx and Engels in their Manifesto of the Communist
Party likewise pointed out that "every class struggle is a political struggle. ,.41
The class struggle is a hypothesis that Marx,and the CPP for that
matter, uses toexplain change. This concept is based on the contradiction
between the modes of production and the relations of production. It is this
contradiction that produces development.V Classes are economic In nature
and are groups ordered according to their relationship to the non-human
forces of production. Their differences in terms of economic interest would
then ultimately produce a revolution where the exploited class would assume
power and stir the society to greater development.
The CPP.NPA, in the same paper (Gil-ayab),ailalyzed that '.'class

contradictions already existed in Cordillera society long before the coming
of the Spanish colonialism,'.4~ and that "open class confrontation may not
have been observable, but. this was because class exploitation often came
masked by kinship."
Thus while there isa recognition of' the role of kinship in the main-
tenance of a tenacious Igorot society, the CPPNPA considers it a camou-
flage in concealing the innate class contradictions existing in the Cordillera.
If class contradiction is a product of opposing economic class interests and
if revolution is the only way of solving class conflicts to spring the society
towards development, then kinship among the Igorots is viewed as a
deterrent in attaining the goals of a new economic order as envisioned by the'
Marxists. The destruction of the kinship relations therefore becomes the
primordial task of the CPP to bring forth a "better society. "
The CPP wanted to impress upon the Igorot society the existence
.of economic classes which are antagonistic' in nature but subdued by
kinship. This fantasy of class struggle in a predominantly communal society
is definitely a dogmatic viewpoint and a blind worship of Marxism. The CPP
erroneously identified the social stratification in the Cordillera as economic
classes. They tried to fit-in social realities in Igorot society to their theory.
eontrary to the analysis of the CPP that "semi-feudalism" and "semi-
colonialism" exist in the Cordillera society, its stage of economic develop-
ment has not reached the stage of feudalism, nor is there the existence of
feudal lords among the Igorots. Land accumulation and the dispossession of
.lands from the Igorots resulted because of the Incursions of cash economy -
an external and artificial imposition over the natural subsistence economy
of the Igorots. It is to be emphasized .this was done not by the Igorots but
by the Christians and foreign individuals and corporations, and was prevalent
only in a few areas in the Cordillera.
April

To prove that neo-colonialism exists in the Cordillera, Gil-ayab alleges -

that:
Class contradictions in Cordillera society were accentuated

by the colonial experience. The Americans did succeed in coloniz-
ing the Cordillera...
As part of overall imperialist planning, the Americans lay

hold of the mineral and forest lands of the Cordillera. They also
introduced the growing of temperate-climate vegetables, coffee
and oranges to meet their direct consuinption 'needs ...
Thus, not even in terms of politics were-the Cordillera people

spared from the clutches of colonialism. Under American tutor-
ship, the Cordillera produced politicians who would surrender-
their people's interests to colonial, and later neo-colonial will. On
the whole, the Cordillera was left without substantial resistance to
imperialist domination. " (Underscoring supplied.)
_Indeed there were colonial incursions into the lands of the Cordillera
and it cannot be denied that a number of Igorot ilustrados did succumb to
the trap. However, this applies only to a few areas and to people who were
fascinated with the superior economy. Thus, to say that neo-colonialism
had been imbibed by the Igorots is pure overestimation. Furthermore, to say
that these violations into Igorots' land and culture "was left without sub-
stantial resistance" is not only an act of obscurantism but an anachronistic
conception of the Cordillera history .
The CPP-NPA in the Cordillera not only misread the distinct culture
and socio-political relations of the Igorots but also misunderstood the
economic system which had been indigenously rooted in their legacy as a
people and as a nation. Even the CPP's concept of Marxism has not only
.'
been limited to orthodoxy but by and large suffers from dogmatism. Their
superimposition of orthodox Marxism into the stark realities of Cordillera
system is not only a form of dictatorship, it has also alienated themselves
from the people. '
The CPP has not only erred in 'its analysis of the Cordilleran society but
has been trying to impose upon the people a political institution which is
alien to Igorots' way of life.
The CPP assumes that "any State is only a means of ruling class power,
what is most essential is that it should be as effective as possible in its
leadership functions and expressive of the will of the working class. ,,44 What
is not so important, however, is to worry about the particular form of a new
1987
178 PHILIPPINE JOURr-fAL OF PUBLIC ADMINISTRATION .
state relations as purely political institutions. For in the CPP's view, "the
evolution of the State is subservient to the evolution of the economy and
therefore all that is crucial is that the State be able to enhance the socializa-
tion of the economyin the worker's interests.'t4S
The CPP's political forms are extolled in two forms - vanguard leader-
ship and democratic centralism (Leninism). Now, since it considers itself as
the Party which embodies the interests of the working class, it is then the
most able leader to carry revolutionary change. In this context, the idea of .
"vanguard" -follows. It is their belief that there is no "need for a plurality
of party because it is only the working class which is to become. a new
ruling class and therefore only the most able party representing the working
class which should exercise political leadership." To quote the CPP further as
manifested-in their various theoretical papers: 46 .
The vanguard party is simply a mass of individuals who are political experts due
to their professional attention to matters of political theory and their devotion to
political practice. There is no need for a plurality of leadership because there is no need
for a plurality of options to be expressed and debated. One program will suffice, for it
has the power of science behind it. All other programs, for example that of an autono-
mous national movement, of an opposition political group, will necessarily be 'non.
scientific,' and therefore mere ideology representing the interests of some recalcitrant
class - the bourgeoisie or \the petty bourgeois./(Underscoring supplied;)e
Within the CPP, "democratic centralism" is the main orgamzmg

principle. This principle has been idealized to promote and take maximum
advantage of expertise within the party. Democratic centralism simply means
that the party will be arranged in a hierarchy with the politburo at the
pinnacle. Directives are formulated by the political experts in the politburo
and after a brief debate they are implemented without question by the
Regional Party Committees down to the basic Party branches at the grass-
roots. Obedience is rewarded by the granting of favors from superiors and
criticisms from below become a lost art. This paternalism is experienced
down the hierarchy at each lower level of Party organization where
superiors are regarded as learned teachers and members as aspiring pupils.
This principle of democratic centralism is not only alien to the Igorots'

indigenous political system but it is anathema to the direct exercise of
.communal democracy in the villages. The indigenous political structures of
the Igorots is an expression of absolute democracy in the Cordillera, where
decisions are expressed by the collective leadership of the Council of Elders
or thepangat after the people, through village assemblies, had democratic-
ally discussed the issue(s) involved.
Since democratic centralism and vanguard approach to leadership

as embodied by the Cpp'are antithetical to the "creation Of a better society,"
April

. THE CORDILLERA QUESTION 179
conversely these threaten the democratic political institutions of the Igorots.

Democratic centralism breeds authoritarianism - a division among people
along lines of giving and taking orders. It creates a political elite, diminishes
critical faculties and stifles creativeness among people, disposes people to
obedience, and promotes dictatorial dominance by a few often pursuing very
narrowly defined interests.4 6 On the other handva vanguard approach
militates against autonomous movements that can struggle around kinship,
community, and economic issues. A cult of experts is itself antithetical and
objectionable to the idea of communal management in the Cordillera for it
relegates all authority to experts as if one cannot make decisions unless one
has the fullest possible technical understanding of all intricacies involved in
a situation. .
The consequence of the application of these forms of political organiza-

tion is bureaucracy on a grand scale: a multi-tiered state wherein each
individual is subordinate to some and superior to many and motivated
primarily by the desire to preserve or accumulate personal status and power
by impressing superiors.t?
Nevertheless, the struggle of the people in the Cordillera continues.

Their demands for political autonomy has been misread by the present
Aquino government which promises and administrative autonomy. The
CPPNPA and its front organization, the Cordillera People's Alliance (CPA),
cannot genuinely represent the Igorots for they carry the same interest as
.the present government. The Cordillera Peoples Liberation Army (CPLA)
and the Cordillera Bodong Administration (CBA) which was born on April
1986 on the other hand remains to be supported by the whole people of the
Cordillera.
Unless there is a genuine recognition that the Igorots maintain a distinct

identity as a people and as a nation, conflicts will continually arise. Unless
the indigenous social-economic-political system of the people is recognized,
ultimate democracy and freedom will remain an elusive goal. It is only
through the comprehensive understanding and recognition of their indio
genous systems 'can the country resolve the 'national struggle being waged
by the Igorots, .
Indigenous Socialism in the Cordillera: A Vision and a

Theoretical Framework
From the preceding account, it is clear that the inability of the present
government as well as the other colonial governments to assimilate and
integrate the Igorot communities into their social systems can be attributed
to their non-recognition of the indigenous systems prevailing in the
Cordillera. Likewise, the CPP-NPA instead of uniting the Igorots against
1987
180 PHILIPPINE JOURNAL OF PUBLIC ADMINISTRATION ~

"imperialism, feudalism, and bureaucrat capitalism" only engendered the
division of their organization with the establishment of the Cordillera
People's Liberation Army (C,PLA) and the Cordillera Bodong Administration
(CBA).
The concrete realities of the Igorot society indicate that its common
culture is a distinct social system from the majority peoples' system. Their
.'
struggle to defend and preserve it have enhanced their awareness of a
common Cordillera national identity. The concept' therefore of a "one
, nation,' one, state" setup in the Philippines is not only a .creation of our
colonial legacy but is an artificial and arbitrary organization for a, country
that is in reality multi-nation and multi-culture.
At this point, it 'should be recognized that the communal stewardship

and utilization of land and natural resources and the ramification of this
concept in the social structure and vaiue systems provides the essence of
socialist economy and moral order indigenous to the Cordillera tribal com-
munities. This has also been the key factor to the peoples' successful defense
of their homelands.
All socialists agree that one precondition of socialism is the elimination

of the distinction between capitalist and worker. 48 The concept itself
finds its relevance under a modern industrial state where the capitalist class
owns the means of production and the worker produces wealth' for the
capitalist in exchange for subsistence wages. This exploitation by the

capitalist class on the working class rests on the inimical property relations
characterized by private ownership where the, mode of production has
already been socialized. The elimination therefore of the distinction between
classes which is based upon private ownership means the elimination of
exploitation through public ownership of the means of production.
The Igorots' land has been their means of production. They feel they
are part and subject rather than conquerors of nature. For them land is
Mother Earth, which he nor anybody else' can own. Land belongs to
Kabunian and what they have are tribal rights to use the land or to control
it territorially. The means of production then belongs to no one. At best

the people believe that what they have is a communal stewardship or
trusteeship of the-land. This trusteeship does not only apply to the present
generation but to the' future ones. Furthermore the -concept of property
applies only to the things which involve labor, or which come from labor.
, For the Igorots, classes in the Cordillera are non-existent since the
concept of private, individual and exclusive ownership of land is alien to
them. Though social stratification exists, this is merely in relation to the
division of labor rather' than -antagonistic in character. On the economic
April
. sphere, the way of life of the Igorots may be considered generally as socialist
in nature.
Socialists believe that political relations are fundamental because it

is through this sphere that political will, through the state, is expressed.
The state is considered as the central institution of society and relations
between people in political and bureaucratic hierarchies are most critical to
life.4 9 The seizure of state power from the bourgeoise is most crucial for the
socialists because it is through this seizure that the proletariat will be able to
consolidate itself and' institute structural change in the society. Marxism and
Leninism, being a dominant school of thought on the nature of socialism,
extolled two institutional forms, viz., democratic centralism and vanguard
leadership. However, these institutions have nothing to do with the establish-
ment of socialist democracy. On the contrary these forms tend to impose
authoritarianism and impede the development of popular participatory
impulses and instead promote popular passivity.
Promoting democracy should be the concern of-socialist politics. And

democracy must be practiced in making, decisions. A non-hierarchical
decision system must be built upon the power of the citizenry itself. This
can be expressed on a nested network of many communes and other living
units into a neighborhood assembly, or many neighborhood assemblies into
a township general assembly, of many townships into a regional federation,
and of many federations into the national state.50
The concept of socialist politic:.. in the Cordillera is not new. The fact
remains that the pristine democracy persisted in their political system since
time immemorial. Direct democracy has been observed through village
assemblies, the spirit of social cooperation at the village or tribal level
finds supra-tribal expression in the bodong system, and the bodong system
which has been the traditional expression of self-government operates as
a federation of tribes for the maintenance of peace interrelations and concer-
ted defense against common enemies. In the concrete sense, the practice of
direct democracy and collective leadership of the Council of Elders in village
governments is the traditional expression of socialism In the political sphere.
The goal most often espoused by orthodox Marxists is' community

homogenization.U This ignores the value of cultural diversity while simul-
taneously' underestimating the complexity and profundity of cultural
creation in general. Community homogenization only eliminates the problem
of intercommunity relations at the expense of the possibility of diversity.
It ignores the need to form a cohesive and yet diverse community of
communities. It fails to meet two socialist criteria: it is destructive of the
1987
182 . PHILIPPINE JOURNAL OF PUBLIC ADMINISTRATION
development of variety in human social relations, and it also damages the

'.
development of self-management since it precludes people from participating
in the collective synthesis of their own ways of dealing with life. 52 Real
diversity is sacrificed to achieve solidarity, but only a forced solidarity. of
imposed uniformity. True solidarity. that comes with mutual respect and
growth is obstructed.
Cultural homogenization therefore is the ultimate threat to all distinct

communities. Socialist intercommunalism, 011 the other hand, take' the view
that diverse communities, cultures, and collective solutions should be
encouraged.

Suminary and Conclusion
The Igorots of Cordillera are indeed a distinct people with a distinct

social system and a separate national community. Among the more
pronounced proofs in support of these are:
(1) Existence of own territory and name. Apart from their actual
place of settlement, which is the Cordillera, every tribe further possesses
considerable territory for hunting, miningvplanting, fishing, etc. The land-
water territory is smaller between tribes related in language and larger
between tribes not so related. The territory delimited by these uncertain
boundaries is. the common land of the tribe, recognized as such by
neighboring tribes and defended by the tribe itself against attacks; . .
(2) A distinct dialect peculiar and endemic to the tribe alone. Tribe
and dialect are substantially co-extensive;
(3) Common religious conception. and ceremonies. Their religion is

a cult of nature and of elemental forces in the process of development to
polytheism. The various tribes have regular festivals with definite rituals,
especially dances and games. Dancing is the essential part of all ceremonies.
Each tribe holds its own celebration separately;
(4) A tribal council for the common affairs'Ofthe tribe. This is usually

composed of the village elders proven of profound integrity and probity.
All issues concerning the village is deliberated upon in public who have the
right to join freely in the discussion and 'to make their views heard. The
council is likewise responsible for the handling of relations with other tribes.
These features are similar to the structure which existed in, American Indian .
tribal groups prior to their near extinction by the American Government.
The unresolved national question in the Cordillera has dragged on for

centuries. The structures of national oppression remain to be dismantled.
April
-. THE CORDILL~RA QUESTION 183
The government continues to regard the Cordilleran question as a case in

development administration rather than a national question. Palliatives are
offered in areas of administrative autonomy rather than political autonomy
and self-governance. The Igorots of Cordillera are conceived as victims of
government negligence rather than a people with distinct identity. This
continued denial and non-recognition by the national government underlies
the unresolved national question..
The CPP-NPA likewise suffers from an ideological deficiency in

handling the Cordilleran question. Their dogmatic application of Marxism
and blind adherence to the Maoist concept of people's war has not made
them any better than the current government in articulating the ideals and
interests of the Igorots, They stubbornly maintain that classes exist in the
Igorot society when classes are inconceivable in a communal society. Their
unimaginable worship of Marxism has blinded them into misreading the basic
and elementary realities of the Cordilleran society. .
Aside from seeing classes where there are none, the CPpNPA tried to
create an antagonistic class struggle in purely non-antagonistic relations
between social groups in the Cordillera, Because of their eccentric analysis,
tl)ey only brought about divisions among kins, instead of preserving and
maintaining a tenacious Igorot kinship.. In essence, the CPP erred in consider-
ing the struggle of the Igorots for national identity as a struggle of classes.
Complementing the error of reading societies, the CPP-NPA further

plunged into oscurantism by not recognizing the existing pristine democracy
in the Igorot society and trying to superimpose the Leninist concept of
"democratic centralism" which only promoteauthoritarianism rather than
socialist democracy. Problems, issues and questions arising among the
Igorots were resolved in Party orPnizations rather than the non-hierarchical
structures of village assemblies and the council of leaders. The CPP-NPA
failed to recognize the processes and institutions as viable pillars of socialist
democracy. The) instead glamorized themselves as the "vanguards" of the
Igorots' struggle for self-determination. This "vanguard" approach essentially
divorced them from the Igorot masses who still maintain, that indigenous
democracy is a part of their political life. .
The Igorots in the Cordillera have been living since time immemorial
.as part of the Philippine Archipelago but as separate national community.
They were able to preserve their communal society and concomitantly
maintain their social, economic, political and cultural systems as a result
of successful defense of their domain. Since their society remains insulated
from foreign and local intrusions, the Igorots' economy as well as its political
and cultural systems. has assumed the essence of socialism. While their
brother Filipinos, as a result of colonialism, experienced the .process of .
1987
184' ' PHILIPPINE JOURNAL OF PUBLIC ADMINISTRATION
acculturation and impositions of cash economy, the Igorots' indigenous

economy and moral order still corresponds to the ideals of socialism . :. . . the
'.
elimination of classes and the promotion of pluralist democracy.
The .existence of indigenous socialism in the Cordillera explains the

development and consolidation o,f Cordilleran nationalism. This type of
nationalism in tum explains their resoluteness and determinism in defending
their territory from contemporary and modem versions of aggression. The
preservation, consolidation, and development of the socialistway-of-life
and moral order indigenous to their homelands therefore underlies their
struggle for independence and freedom.
Only from the vantage points of free strong communities can the
minority peoples willingly, confidently, and competently contribute to the
building. of a single unified Filipino nation. The Igorots of the Cordillera
wish peace to reign in their homelands and 8desire~ peaceful relations with the
majority people. However, the .Igorots andthe other minority groups in the
country have always borne the brunt of the most unjust treatment of the
unitary Philippine state which continues to frustrate the existence of guaran-
teed sovereign and autonomous homelands.
Recommendations
It is only through a federal setup of government in the Philippines can

.the Igorots of the Cordillera and the other minority peoples attain equality,
democracy, and freedom and thus operate as co-equal states with the
majority people. A federal reorganization of the Philippines should be a
sound strategy for both regional and overall development of the country
where the varying social systems, cultural and natural-resource parameters,
and other peculiarities of the different: national communities are taken into
account.
The following recommendarions are forwarded:
(1) A new body must be created by the President of the Philippines

responsible for studying the problems, questions, or issues raised by the

national-liberation struggles .of the minority national communities. Corollary
to this is a reexamination of the assumption that only a single nation should
exist inthe Philippine archipelago. This body should be tasked with making
recommendations on how best to bring about harmonious relations and close
cooperation among the Christians, Moro, Igorots and' other indigenous
national communities. The possibility of a federated Republic of the
Philippines must be looked into which would allow the co-existence within
its framework of autonomous and.'co-equal states, including the Autono-
mous Socialist State' of Cordillera, the Bangsa Morn;State as dem~ded by
April
THE.CORDILLERA QUESTION 185
the Moro Nation, as well as similar state or states of minority national

communities and the rest of the Filipino society;
(2). The integrity of the Cordillera national community must be

respected. Artificial and divide-and-rule political boundaries cutting across
'the tribal peoples of the Gran Cordillera Central and contiguous areas must
be dismantled as these exist in complete disregard' of their common indi-
geous culture binding them together in a single society with a distinct
identity; and .
(3) A codified custom laws and mores of the various peoples of the :
Cordillera nation must be integrated into the system of laws of. the
Philippine Republic, which shall have prior operation within the
Autonomous Socialist State of Cordillera over and above extemallaws.
.Endnotes
1An indigenous charter developed by the Cordillera Bodong Administration during the second
quarter of 1986.
2william Henry Scott, "The Gran Cordillera of Northern Luzon," History of the Cordillera:
Selected Writings on Mountain Province History (Baguio City: Baguio Printing and Publishing Co.,
Inc., 1975)~ p, 27.
. 3Scott, "Introduction," The Discovery of the 19orots: Spanish Co~tacts with the Pagans of
the Northern Luzon (Quezon City: New Day PUblishers, 1974), p. 1.
4"National Minorities and Development, A Cordillera Situationer," n.d., p, 1.
Slbid.
6''Cordillera Studies: Part U - History," Cordillera Schools Gro\ijl, n.d., p. 229 .
. 7philippine, Free Press. January 20, 1934, as cited in Howard Fry, A History of the Mountain
Province (Quezon City: New Day Publishers, 1983), p. 24.
~ariflor Pagusara, "The KaliiJgaUi: Cultural-Ecological Reflections on Indigenous Theory and
Praxis of Man-Nature Relationship," paper read at the First Multi.sectoral Land Congress (FMLC).
Baguio City, March 13, 1983.
9''Cordillera Studies ..., " ibid. p. 241.
10See William Claver, "Land, Culture and Identity," keynote address, DIalogue ASiaConference,
Baguio City, October 20-30, 1984. .
llScott, ''Class Structure in the Unhispanized Philippines," Cracks in the Parchment Curtain
(Quezon City: ~ew Day Publishers, 1982), p. 131.
12philipPinesFree Press, ibid.
, 13 Zenaida Hamada Pawid, "Indigenous Patterns of Land Use and Public Policy in Benguet,"
pa~r read at the FMLC, Baguio City, March 13, 1983 .
1987

1~~ss, 1920. as cited in Ben Tapang, "Innovation and Economic Change: A Case History of
the Ibaloi Cattle Enterprise in Benguet," (master's thesis, Graduate School of Economics. Center for
Research and Communication. 1982). , .
lSpawid, op. cit.
16pagusara, op. cit.
17Mercy Laetao-Fabros, "Our Tribal Filipinos: The Long Trail," WHO, .January 14. 1979 .
. ISpetty plutocracies are.socially and politically recognized classes of rich men whose status
were attained through birthright. property and performance of specified ceremonies.
19Scott "Class Structure...... op. cit., p. 138.

20/bfd.
21"Land Use and Ow~ership and PubliciPolicy," n.d. p. 5.
22Masaharu Osaki, "Anthropology on Igorot Politics." The Cordillera Report, n.d ..
23Knewn as the Regalian Doctrine. this legal fiction was based on the belief that all lands in the
still unexplored and politically undefmed archipelago belong to the King of Spain. This was however
disputed by Justice Oliver Wendell Holmesjn the 1909 landmark case wherehe recognized ancestral
land ownership. See volume 41 of Philippine Reports, as cited in Owen Lynch. "Freedom and
hijustice: Towards Recognition of Human Rights for Ancestral Land Ownership,': Sandugo, volume
3 and 4 (1983). .
240 rlginal occupants can only occupy the land for frYe years. after which application for home-
stead must be secured. otherwise the land will be declared open for lowlanders.
25''Cordillera Studies ." op. cit., p. 255.
26"Mt. Data National Park Reforestation," Montanews, August-September 1979.
27R .A. 6463 as cited in ''Cordillera Studies ...,'. op. cit.
28 Thid.
28/bfd., p. 360.
29WHO,October 13. 1979. p. 29.
30''The Early Beginning." n.d. p. 2.
31BuUetin Todoy. May 26, 1985.

32"National Minorities and Development: A Cordillera Situationer," n.dp. 5.
33''Cordillera Studies. . ..... op. cit., p. 325-326.
34ne Communist Patty of the Philippines explains national democracy as the strugle of the
Fmpinomasses for national,independence against US impeiialism and a struggle for the democratic
demands of the people - land reform for the peasants, and the establishment of workers' control
over the operations of industries for the proletariat. .
35Sisonconsidered the propaganda movem.ent of Ilizal, Lopez-Jaena.Del Pilar, Jacinto arid

Luna In the 1800s as the First Propapnda Movement.
April
, Amado 'Guerrero, Philippine Society and Revolution (Manila: Pulang Tala Publications, 1971). "
37A group of six cadres. Military' formations of the NPA are usually undersized as compared
to formations used in conventional warfare due to the nature of guerilla warfare.
3ll.rhe Hukbong Mapagpalaya Laban sa Hapon (Anti-Japanese A'rmy) became the nucleus of the
Hukbong Mapagpalaya ng Bayan (people's Liberation Army) after the Second World War.
39 The cadre referred to is Abrino Aydinan.
40 Gil-Ayab, Special Edition, November ,1986 .

41Karl Marx and Frederick Engels, Manifesto of the Communist Party: Selected Works,Volume
1 (Moscow, 1969), pp. 116-119. '
42 Ibid.
43Gil.Ayab, ibid.
44Michael Albert and Robin Hannel, Socialism Today and Tomorrow (New York: South End
Press, 1981), p. 24..
45/bid.
46Albert and Hannel, op. cit., p. 26.

47 /bid., p. 27.
48 Ibid., p. 33.
49Ibid.
SO/bid., p. 23.
S!Lyman Tower Sargent, "Communism," Contemporary Political Ideologies (Homewood,

III: The Dorsey Press, 1981), p. 271.
S2/bid., p. 347.
1987

07 - The Case of The Cordillera

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PhilippineJournal ofPublic Administration, Vol.

XXXI, No: 2 (April 1987)

The Case. of the Cordillera: .

An Unresolved National Question

*MPA student, College of Public Administration, Uniyersity of the Philippines.

Scope and Limitation

This is a study of the Igorot's struggles for autonomy and equality as

The role of the revolutionary organizations in the Cordillera is likewise

Cordillera: The Land and the People

Cordillera is a Spanish word meaning "little cord." It is generally used

bone of a continent or an island like a twisted cord. Cordillera therefore

The whole area of Cordillera is rich in natural resources. Its mountains

Filipinos born on the Gran Cordillera Central are generally or collectively

known as Igorots, but it might be more accurate to refer to them according

Although the Igorots belong to different groups, they nonetheless

Nonetheless, the indigenous Eilipinocultureain the Cordilleras did not

The Igorot Minorities: Its Historical,Creation

Philippine history is virtually a history of the colonized peoples. We

Ironically, the history of the uncolonized peoples, which we now term

The perception of the majority peoples that the minorities are

In the lowland barangays, however, under the onslaught of the sword

The majority-minority distinction therefore emerged only because of

As the colonized people modified their native customs under foreign

The Defense of their Homelands: A Historical Account

The Spanish Period

Some of these military expeditions were able to encroach into the

The people of the Cordillera persistently fought the Spaniards to a .

Together with' military campaigns, Christianization efforts were also

The American Period

Although both colonialists had the same economic interests in the

The American-educational system proved very effective not only in

Anticipating a prolonged stay in the Cordillera, the Americans

The Americans wittingly laid the legal foundations to dispossess the

The Americans were relatively effective in reducing the resistance of

The Japanese Occupation

Land Use and Ownership in the Cordillera

In a separate study made by William Henry Scott on pre-hispanic

164 PHILIPPINE JOURNAL OF PUBLIC ADMINISTRATION

estate ownership.l ' Land itself is the property of supernatural personalities

One article aptly described this relationship:

The concept of land ownership has been. clearly enunciated by no less

Most of the lands of the Igorots have been traditionally, held in

"Property" then generally applies to the things which involves labor or

The general absence of private ownership of land in the Cordillera

have had to the villages and other tribes.

The Persistence of the Indigenous Political System.

Direct democracy is observed in the process of public decision-making.

In Kalinga, clans are, represented in the ili by elders or papangat or

The peace pact or bodong or vochong represents the political institu-

In Bontoc, the ator serves as the functional organization of the. people

In Benguet, the councils of old men called amam-a ordaUakay repre-

to certain areas are established through inter-village alliances in a formalized

The bodong system, known by various terms among different tribes.in

The bOI :ong system is traditionally' a bilateral peace .arrangement

The restoration of peace pacts and goodwill between villages is done in

The social structure of villages in the Cordillera embodies democracy.

The organization of the Kalinga-Bontoc Peace Pact Holders Association

The KP A therefore is a new federation of autonomous villages in the