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Interregional Planning in The Philippines: Legacies and Lessons From A Two-Decade Experience in Mindanao Regions

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15th INTERNATIONAL PLANNING HISTORY SOCIETY CONFERENCE

INTERREGIONAL PLANNING IN THE PHILIPPINES:


LEGACIES AND LESSONS FROM A TWO-DECADE
EXPERIENCE IN MINDANAO REGIONS
Prof Dr Sophremiano B. Antipolo
Vice President for Research and Development
University of Southeastern Philippines
Obrero Campus, Davao City, Philippines
sophremiano@yahoo.com

ABSTRACT

Interregional planning in the Philippines officially started in 1992 with


the creation of the Mindanao Economic Development Council (MEDCo).
From 1975 to 1992, Mindanao was a highly fragmented economy with
each region competing for scarce resources coming from Luzon. There
were very little interregional economic linkages then. And this
perspective contributed to the highly uneven development among
regions. This paper sketches out the historical development in
interregional planning in the Philippines using the case of Mindanao
regions. It is organized in four parts. Part 1 outlines the definition of
intra and interregional planning and embeds the evolution of such
planning process. Part 2 elucidates on the first interregional planning
in Mindanao through the formulation of the Mindanao 2000
Development Framework Plan – the predecessor plan. This part also
includes key milestones during the plan period. Part 3 highlights the
Vision, Objectives, and Strategic Interventions as stipulated in the
successor or current Plan -- The Mindanao Peace and Development
Framework Plan, 2011-2030. The Paper concludes with Part 4 which
outlines the legacies and lessons from a two-decade experience in
interregional planning in Mindanao.

INTRA AND INTERREGIONAL PLANNING

Intraregional planning is the type of regional planning which is directed towards


resource allocation within regions or between subregions, and between various
policy fields – economic development, social, environmental, transport, and so
forth. Interregional planning, on the other hand, is concerned with the
allocation of resources between regions (Glasson, 1978:27).

While regional planning in the Philippines started in 1974 through the creation
of the National Economic and Development Authority (NEDA), it was largely
carried out on an intraregional basis through each of the Regional Development
Councils (RDCs) and supported by the NEDA Regional Offices (NROs) as its
Technical Secretariat. Figure 1 presents a Map of Southeast Asia showing the
Philippines and Figure 2 presents a Map of Mindanao Regions in the Philippines.
Cities, nations and regions in planning history

Figure 1. Map of Southeast Asia showing the PHILIPPINES.

While RDCs thru NROs attempted to link regional plans, from 1975 to 1992,
Mindanao was a highly fragmented economy with each region competing for
scarce resources coming from Luzon. There were very little interregional
economic linkages then. This perspective contributed to the highly uneven
development among regions in Mindanao. To respond to Mindanao’s unique
situation, the national government crafted a catch–up plan for the Island–
region and then started to integrate and mainstream regional planning and
implementation of development programs and project in Mindanao with the
national agenda through the establishment of the MEDCo. Since its creation in
1992, MEDCo has then integrated and complemented all development efforts
among the six regions in Mindanao resulting into dramatic leaps in the Island-
region’s economic indicators. Demonstrating growth potentials never before
achieved in Mindanao, it posted a 7.6 percent growth in 1996, surpassing the
national average growth rate. Between 1996 and 2007, Mindanao spurred a 7.2
percent Gross Regional Domestic Product (GRDP) growth, the highest in ten
years. Before the catch-up plan, Mindanao’s average economic growth was a
15th INTERNATIONAL PLANNING HISTORY SOCIETY CONFERENCE

Figure 2. Map of MINDANAO REGIONS in the Philippines.

mere 1.9 percent, way below the country’s average of 2.8 percent. Today, the
Mindanao enjoys an annual average growth of 4 percent. Such growth could be
attributed to many factors. For its part, MEDCo counts on various milestones
that have contributed to Mindanao’s economic turnaround. Specifically, the
milestones have sought to integrate physical infrastructure as well as the
various development programs and projects implemented in Mindanao Regions
through the years. The milestones include formulating the Mindanao 2000
Framework Plan; establishing Mindanao-wide and interregional mechanisms
such as Infrastructure Monitoring and Advisory Groups (IMAGs) and Task Forces;
organizing Mindanao Economic Cluster investment models; building the
Mindanao Super Region; updating and maintaining Mindanao development
database; groups and various partners (MEDCo, 2008).
Cities, nations and regions in planning history

THE MINDANAO 2000 DEVELOPMENT FRAMEWORK PLAN:


THE PREDECESSOR PLAN

The Mindanao 2000 Development Framework Plan is an economic development


blueprint that shows the intricate relationship of economic growth and poverty
alleviation, as well as peace and security in the Island-region. It covers the
period 1995-2010. After a series of consultations with various sectors in
Mindanao, including the Coordinating Council for Philippine Assisted
Projects(CCPAP) and the Agriculture Policy Research and Advocacy Assistance
Program (APRAAP), the Mindanao 2000 Framework Plan was presented to and
accepted by then Philippine President Fidel V. Ramos during a meeting with
Mindanao government officials and businessmen on 21 February 1995. Since
then, policy reforms, programs, and projects for Mindanao’s development have
been refocused, leading to a more integrated Mindanao economy.

The Medium-Term Public Investment Program (MTPIP)

The MTPIP, 1995-2000 was also formulated to provide information on the


priority areas for public and private investments. MEDCo also endeavored to
acquire information, issues and concerns on the implementation of the
programs and projects in Mindanao as well as the establishment of networks.

Conduct of Various Infrastructure Summits


and the Creation of IMAGs and Task Forces

From 1992 to 1997, MEDCo pursued its strategy to fully integrate the regions of
Mindanao through strategic investments and interregional projects. MEDCo
successfully conducted infrastructure summits, namely: the Mindanao
Highways System Summit, Mindanao Telecommunications Summit, Mindanao
Air Transportation Summit, Mindanao Watershed and Irrigation Summit, and
the Mindanao Power Summit. These summits served as venues to discuss
bottlenecks in fast-tracking improvements in the infrastructure sector.
Moreover, the speedy completion of PAPs was a result of the creation of the
Infrastructure Monitoring and Advisory Group (IMAG), which was a major
initiative of the MEDCo to address issues concerning the implementation of
infrastructure projects. The IMAG is a team-up between LGUs and the private
sector, which serves as the field arm of the Mindanao Task Forces. At present,
21 IMAGs have been created in Mindanao.

The Mindanao Task Forces were created to monitor the implementation of PAPs
as well as to lobby for sufficient infrastructure budget for the development of
the infrastructure sector. Among the Task Forces created were the Mindanao
Arterial Road Task Force (MARTF), Mindanao Water Transport Task Force
(MWTTF), and Mindanao Task Force on Poverty Alleviation (MTFPA), Mindanao
Watershed and Irrigation Task Force (MWITF). The creation of IMAGs and Task
Forces established partnerships which made major infrastructure milestones in
Mindanao possible. The milestones were also made possible in collaboration
with National Government Agencies (NGAs), LGUs, Non-government
Organizations (NGOs) and other support sectors.
15th INTERNATIONAL PLANNING HISTORY SOCIETY CONFERENCE

Economic Growth Clusters As Investment Models

The MEDCo also coordinated with the Resource Ecology Foundation in Mindanao
(REFORM) in organizing a conference for investment and growth and presenting
the eight economic clusters in Mindanao as investment models, namely: (1)
Agusan-Surigao Ecozone; (2) Cagayan-Iligan Corridor; (3) Davao Gulf Cluster;
(4) SOCSARGEN; (5)Greater Cotabato-Lanao del Sur Cluster; (6) ARMM; (7)
Panguil Bay-Mt Malindang Cluster; and (8) Zamboanga Peninsula Cluster.

The Mindanao Super Region

During her State of the Nation Address (SONA) in 2006, President Gloria
Macapagal-Arroyo unveiled the “Super Region”, taking cognizance with the
strength of grouping selected regions and provinces in the country. Under the
Super Region strategy, Mindanao’s strong potential to become the country’s
agribusiness center is being developed and harnessed through major
infrastructure support.

For its part, the MEDCo sits as the convenor of the Inter-agency meeting on
Mindnao Super Region, a regular meeting held every two months and
participated in by the Mindanao Super Region Team composed of government
line agencies wherein a Technical Working Group (TWG) was created. The TWG
provides a venue for the discussion and resolution of issues and concerns
affecting the implementation of the President’s priority projects. The regular
meetings of the Interagency TWG have facilitated budget releases for Mindanao
Super Region projects. As of June 2010, about P 48.591 billion or 53.38% of the
P88.196 billion total funding requirement have been released for the
implementation of Mindanao Super Region priority projects. Of the 38 projects
committed by the President for Mindanao, nine have been completed, 19 are
on-going and the rest are in various phase of pre-implementation. In addition,
13 out of 15 hospital upgrading projects have also been completed with a total
cost of PhP 161.30 million.

Creation of BIMP-EAGA

Located at the southern end of the archipelago, Mindanao has been considered
the country’s backdoor. This may simply refer to being the far-end recipient of
what is good for the culturally-diverse and resources-rich Island, to being
derogatorily known as the passage for smuggling and human trafficking.
However, with the advent of globalization in the 1990s, Mindanao took the
chance and heeded the call to expand its potential market of goods and
services. After all, Mindanao has rich natural resources, a strong and more
competitive agriculture base, largely distributed tourism destinations, a highly
entrepreneurial, literate, and in large measure, empowered populace.

More importantly, Mindanao, along with Palawan, is also strategically located


among the neigboring countries with which it shares strong historical and
cultural ties that date back to the 17th century. Taking on these age-old ties
and the unique Asian strategy that encourages geographically proximate areas
to take part in crossborder investments that spur economic activity, Mindanao,
Cities, nations and regions in planning history

along with Palawan, has, for the past 15 years, been actively participating in
the Brunei Darussalam-Indonesia-Malaysia-the Philippines East ASEAN Growth
Areas (BIMP-EAGA).

The BIMP-EAGA began as a main agenda in the high level talks of then President
Fidel V. Ramos with his BIMP counterpart Heads of State in 1992. The
endorsements and confirmation of then President Shuharto of Indonesia
(September 1993), Sultan Haji Hassanal Bolkiah of Brunei Darussalam
(November 1993) and Prime Minister Mahathir Mohammad of Malaysia (February
1994) paved the way for the BIMP-EAGA Inaugural Senior Official’s Meeting and
Minister’s Meeting (SOM/MM) in Davao City, Philippines on 24-26 March 1994.

The BIMP-EAGA was a strategy intended to accelerate the economic


development of focus areas that have lagged behind the other regions in the
respective countries, except for Brunei Darussalam. These focus areas are the
entire Sultanate of Brunei Darussalam; Irian Jaya, Maluku, Gorontalo, and all
the provinces of Kalimantan and Sulawesi in Indonesia; Sabah in Malaysia; and,
Mindanao and Palawan in the Philippines. These focus areas are geographically
distant from the central capitals where national governments are based.
Likewise, geographic proximity among the focus areas was seen as a leverage
that would propel the development of the subregional cooperation.

MEDCo as the Philippine Coordinating Office for BIMP-EAGA


In March 1994, the formation of the BIMP-EAGA became Mindanao’s platform to
increasing trade, tourism, and investment across neighboring countries
participating in the global arena.

With the Executive Order No. 244, MEDCo was mandated to serve as the
Philppines Coordinating Office (PCO) for the BIMP-EAGA Cooperation. Serving as
the National Secretariat (NS) for BIMP-EAGA, MEDCo is reponsible for the
Philippines country position project and initiatives in order to increase trade,
tourism, and investments in selected priority sectors in the subregion. These
sectors include: agro-industry and natural resources; tourism; transport
infrastructure and ICT; SMEs; improved governance; and institutional
strengthening.

Institutional Strengthening and Mainstreaming of the Local Governments


A continuing effort in the BIMP-EAGA is the institutional strengthening and
mainstreaming of the local governments. In 2007, MEDCo spearheaded the
conduct of the Second LGU Forum in Koronadal City, South Cotabato, which
served as a venue to discuss common issues and possible local collaboration
efforts and programs. The institutionalization of BIMP-EAGA LGU Forum was
held back-to-back with the Senior Officials and Ministerial Meeting (SOMM).

Modifying Policies to Support the development of EAGA


During the first four years of BIMP-EAGA, the following policy modifications
were attained through the efforts of the various BIMP-EAGA Working Groups:
(1) exemption on travel tax and decentralization of Philippine Contractors
Accreditation of Philippines Board (PCAB) functions; (2) uniform port tariff
agreements between the Philippines and Indonesia; (3) reduction of port dues
15th INTERNATIONAL PLANNING HISTORY SOCIETY CONFERENCE

and docking fees; (4) accreditation of hospitals for medical examination; and
(5) discounted rates for telephone calls within BIMP-EAGA.

Trade, Tourism, and Investment Promotions


MEDCo has put forward tangible actions in promoting trade, tourism and
investments in the BIMP-EAGA by enhancing information exchange,
strengthening resource management, increasing investments, among others.

Business Development and Investment


MEDCo also contributed to achieving modest but encouraging gains in the area
of business development and investment in the following industry: (1) seaweed
industry, (2) halal industry; (3) tuna industry; and (4) tourism.

Forging international ties beyond the BIMP-EAGA


In line with the inward-looking to outward-looking market orientation, MEDCo
has been actively involved in forging ties with other countries beyond the BIMP-
EAGA. These countries include the Middle East (Yemen), and Europe. In
addition, MEDCo has been providing briefings to incoming missions from the
EAGA and Australia, Bangladesh, Canada, European Union, Germany, Japan,
and New Zealand. MEDCo has also conducted similar briefings to several
multilateral agencies such as the World Bank and the International Finance
Corporation.

From a Backdoor to the Country’s Front Door to East ASEAN Growth Area
Mindanao has always supplied food and raw materials to Luzon and Visayas.
Forty-two percent of the national output comes from Mindanao’s agriculture
sector. Its agriculture-based economy, however, makes the Island vulnerable to
detrimental shocks, such as unfavorable weather conditions and other
calamities. To address this , MEDCo coordinated with national line agencies,
private sector and other key stakeholders to attract investments in sectors such
as mining and quarrying, telecommunications, power generation, business
outsourcing, trade and tourism. These investments have led the industry and
services sectors to flourish.

More than the creation of jobs, the flourishing of the industry and services
sectors also indicates that the Mindanao Island is no longer just a provider of
raw materials, the establishment of processing plants allows local economies to
produce high-value commodities for export; consequently, the link to external
markets through trade has significantly reduced vulnerability to both demand
and supply shocks. MEDCo has actively supported various Mindanao champion
industries as part of its efforts in promoting Mindanao as a viable trade and
investment destination through tehcnical assistance to some industry and
private sector organizations as establishing and facilitating coordinative
mechanism among industry players.

Providing technical assistance to Provincial / Regional Agri-Industrial Centers


(PAICs / RAICs)
MEDCo has played an important role in assisting Provincial/Regional Agri-
Industrial Centers (PAICs/RAICs). The MEDCo Secretariat was involved in the
discussions of concerns relative to the development of PAICs / RAICs with the
aim of stimulating investment activities in the provinces. This initiative was also
Cities, nations and regions in planning history

in support of local government initiative on the promotion and project


implementation of special economic zones or growth clusters.

From Manila-Centered to Pro-Mindanao Policies


Over the years, peace and development work were undertaken by a myriad of
organizations from various national and regional government agencies, local
government units, the private sector and the civil society. As the case usually
goes, interfacing among and between organizations is limited and singularity of
purpose and effort from all sectors are seldom achieved. These different
organizations also pursue differing and sometimes contradicting priorities and
approaches to resolving certain issues and concerns.

Under these conditions, MEDCo assumes a broader, Mindanao-wide


perspective. Complementing the efforts of various organizations, MEDCo
integrates and adopts a Mindanao policy agenda which emanates from the
Mindanao stakeholders but also transcends above the numerous individual
interest and jurisdiction. Espousing a holistic approach to development, MEDCo
interfaces with various stakeholders and tackle not just economic policy issues
but the entire gamut of development including ecological, cultural, social,
institutional and even political dimensions. Recognizing the importance of this,
MEDCo integrates the policy agenda, which has interregional and Mindanao-wide
impact. MEDCo coordinates these various agenda with the concerned
stakeholders, thereby looking beyond the specific agency / sector concerns.
Thus, with MEDCo at the forefront, lobbying efforts for the inclusion of critical
Mindanao policy agenda in the national priorities become unified and integrated
as well.

Organizing hierarchical clusters of Mindanao provinces and municipalities


One of MEDCo’s major mandates is the rationalization of programs and projects
in Mindanao which ensures that those who need them most receive the more
significant share of PAPs. In response to this concern, MEDCo developed a tool
that organizes all the provinces and even the municipalities into hierarchical
clusters that would effectively arrange them into the most vulnerable to the
least vulnerable in terms of several social indicators.

Forging partnership for development


Collectively called as Team Mindanao, these institutions have effectively
provided a sounding board for all Mindanao-wide issues and concerns as well as
pursued policy advocacy.

MEDCo works with Team Mindanao, serving as lead convenor, secretariat or as


partner agency in order to facilitate an integrated planning, investment
programming, resource generation, advocacy, as well as monitoring and
evaluation for Mindanao development initiatives.

This approach encourages stakeholders participation in the process at all levels


of Mindanao development work, promotes transparency in project
implementation, and empowers communities through their LGUs as frontliners
of development.

Bridging Peace and Development in Mindanao


15th INTERNATIONAL PLANNING HISTORY SOCIETY CONFERENCE

When MEDCo was first established in 1992 as the only Mindanao-wide


government entity that coordinates and monitors major regional and
interregional programs and projects, its focus was primarily economic. Up
until 1996, when the signing of the Final Peace Agreement between the GRP
and the MILF, MEDCo’s efforts have been refocused towards economic growth,
poverty alleviation, peace and security.

With the Peace Accord, the need for more holistic approach -- one that
includes peace concepts and peace processes – has been underscored. After all,
with the Peace Accord came the influx of donor-funded programs and projects
in Mindanao. These programs include: (1) GOP-UNDP-EC/IDP Program; (2)
Action for Conflict Transformation (ACT) for Peace Program; (3) Mindanao
Peace and Development Program; (4) Strengthening Response to internal
displacement in Mindanao; (5) Coordinating the Mindanao Working Group.

MINDANAO PEACE AND DEVELOPMENT FRAMEWORK PLAN, 2011-2030:


THE SUCCESSOR PLAN

Overall Vision
The Mindanawons (people of Mindanao) have spoken in countless consultations,
forums, surveys and conversations, and their overall aspirations may be
captured in the following vision for their homeland twenty years hence, i,e,:
by year 2030:

Mindanawons of all cultural or socio-economic backgrounds have


attained a sustainably uplifted quality of life through their collective
achievement of a peaceful, developed, autonomous and integrted
Mindanao that is the vanguard for the country’s sustainable
development.

Overall Goals and Objectives


To be able to lead long, productive and happy lives, the following goals must
be achieved for all Mindanawons regardless of age, class, gender, faith or
ethnic origin:

1.Definite and lasting peace, with all combatants and private armies
demobilized and rendered non-existent; with families, communities and
institutions rebuilt and healed from conflict and past natural disasters.

2. Overall well-being marked by good health, ample education and social


cohesion, evidenced by:
 People enjoying wide and easy access to responsive health care
systems and health financing;
 Widest access, especially for the young and the marginalized to quality
formal, nonformal, alternative, and indigenous education;
 Respect for Mindanawons’ personal and communal dignity and for their
individual and collective human and cultural rights;
 Families, communities, ethnicities, institutions and organizations
capable of growing according to their best traditions and innovations.
Cities, nations and regions in planning history

3. A unified, dynamic and sustainable Mindanao economy that is technology


enabled, characterized by synergy and complementation among its various
economic centers, and true to its application as food basket in the country and
the Asia-Pacific region. Its hallmarks shall be:
 A world-class infrastructure system; and
 Responsible and sustainable management of Mindanao’s natural and
cultural resources.

4. A praticipatory and culture-sensitive Mindanao governance and political


framework that asserts self-reliance and self-determination, marked by:
 Stable, self-reliant, responsive and responsible Local Government Units
(LGUs);
 Effective coordination and monitoring mechanisms at the Mindanao-
wide, regional and inter/intra-provincial levels;
 A responsible and empowering central governments and communities
to direct development directions and initiatives;
 Indigenous peoples being able to exercise self-determination in
managing and governing their respective ancestral domains; and
 Wide respect for the rule of law and human rights;

5. Active and synergistic international economic, cultural and political


linkages, with ASEAN and Asian neighbors, the Middle East, and the rest of the
world.

The Way Forward


Translating Mindanao 2020 into appropriate action and ensuring that what was
set out to be accomplished will be done so in a faithful and timely manner will
entail a number of key activities that form part of the complete planning cycle.
These include (a) policy reforms that could be affected by administrative action
or via legislation, (b) a private-public investment program that embodies
program and prject interventions that will help achieve identified development
objectives, (c) implementation mechanisms that will define needed inter-
agency coordination, responsibilities and accountabilities, and time frames of
accomplishment; and (d) monitoring and evaluation (M&E) system.

The long-standing challenge for Mindanao and the Mindanawons is to unite and
rally behind a widely-shared vision, and collectively work in its pursuit across
the cultural, political, economic and social divides that have fragmented the
Island group since time immemorial.

It is hoped that the participatory and consultative exercise that led to the
articulated vision, goals, thrusts, strategies, and initiatives embodied in the
Mindanao 2020 Plan will impel Mindanawons to bridge those divides, and with
20/20 vision, set their sights on the common goal 20 years hence that have
been articulated: that of a peaceful, developed and integrated Mindanao that
makes a sustainably uplifted quality of life a reality for all Mindanawons
(MinDA, 2011).
15th INTERNATIONAL PLANNING HISTORY SOCIETY CONFERENCE

SUMMARY AND CONCLUSIONS:


LEGACIES AND LESSONS FROM THE MINDANAO EXPERIENCE

The Paper has sketched out the historical development in Mindanao


interregional planning since 1992 under the stewardship of the MEDCo and up
until recently through the Mindanao Development Authority (MinDA).
Accordingly, the Paper has outlined that interregional planning in Mindanao has
established the following legacies and lessons: (1) Mindanao has evolved from a
fragmented to an integrated Island economy; (2) from a backdoor economy,
Mindanao has become a frontdoor to East ASEAN Growth Area; (3) From a
Resource Base and Raw Material Supplier, Mindanao has become an Agro
Industry and Manufacturing Center; (4) from Manila-Centered, interregional
planning has become Pro-Mindanao-oriented policies following the principle of
decentralization, empowerment and subsidiarity (Antipolo, 2005); (5) from an
intra-regionalist planning paradigm, the planning process has graduated to
One-Mindanao and inter-regionalist planning consciousness emphasizing
synergy; and (6) from a largely economic planning-oriented process, inter-
regional planning in Mindanao has evolved to bridging peace and development
in this Island economy.

Notwithstanding these milestones and legacies, some of the issues and


concerns continue to baffle the Island economy. The monitoring and evaluation
of the predecessor plan asked the question: what has worked as opposed to
what has not and, in the process, outline some strategic interventions that
should be articulated in the successor plan. These are provided in the
successor and current plan – The Mindanao Peace and Development Framework
Plan, 2011-2030.

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-oOo-

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