Security Sector Reform MODERN DEFENSE FORCE philippines Security Sector Reform: Modern Defense Force philippineS Published by: Ateneo de Manila University (ADMU) Department of Political Science Working Group on Security Sector Reform (WGSSR) 3/F Leong Hall, Katipunan Avenue, Loyola Heights, Quezon City 1108 Ph Tel No: +632 426.6001 Email: [email protected] in partnership with Armed Forces of the Philippines Camp General Emilio Aguinaldo, Quezon City 1110 Ph Tel. No.: +632 913.0952 Military Tel. No.: +632 911.6001 Military Line: +632 774.5625 Website: www.afp.mil.ph with funding support from: Australian Aid Level 23-Tower 2 RCBC Plaza 6819 Ayala Avenue, Makati City, 1200 Tel. No.: +632 757.8100 Fax: +632 757.8268 Philippine Copyright ©2014 ISBN 978-971-550-691-5 All rights reserved. No part of this book may be reproduced in any form or by any means, except brief quotations for review, without permission in writing from the Authors. Editor Jennifer Santiago Oreta, Ph.D. Copy Editors Kathline Anne S. Tolosa Mereniza C. Gomez Reyna Mae L. Tabbada Maribel Daño-Luna Alexis Jerome M. Tolibas Disclaimer Admin Support Ramona Liza M. Paulino This publication is produced by (or is a product of) Working Group on Security Sector Reform, Department of Political Layout & Design Science, Ateneo de Manila University with support from the Tyrone John A. Reyes Australian Aid. The findings, interpretations, and conclusions Email: [email protected] expressed in this volume do not necessarily reflect the views Bernadette N. Patañag of the Australian Government. Email: [email protected] ABOUT THE BOOK The authors have attempted to break apart the ten-point agenda towards a Modern TDefense Force to problematize and translate the big words into smaller, bite-sized, chewable pieces. The essays attempt to elaborate on the intricacies of the concept ‘modern defense force,’ and engage the reader to think through the issues. The authors have extensive knowledge as regards the issues they have dealt with in their essays – some of them are military officers in active duty, others are researchers who were involved in actual policy research while in the Department of National Defense (DND) and/or Armed Forces of the Philippines (AFP), while others are academics involved in security research. The writers are part of the technical working group (TWG) created for this research publication while some were invited contributors. The papers, prior to publication, were all subjected to thorough discussion by the TWG. While the essay-writer has full responsibility to his/her work, each paper was vetted, challenged, and debated upon by the entire TWG. The series of TWG discussions happened during the period January to December 2012. No confidential information is revealed in any of the papers. ABOUT THE BOOK iii TABLE OF CONTENTS about the book iii foreword vii chapters: 1 Dreaming of a Modern Defense Force 1 2 Policy Environment for a Modern Defense Force 11 3 Mapping Out the Legal Terrain of the Philippine Security Sector 25 4 AFP Modernization 39 5 AFP Force Structure 49 6 AFP Doctrine and Training 57 7 AFP Clear Operational Plans 65 8 Philippine Intelligence Community: A Case for Transparency 75 9 Civilian Engagement of the Military 87 10 Gender Inclusiveness in the Military 99 11 Ethnic Representation in the Armed Forces of the Philippines 109 12 Self-Reliant Defense and People-Centered Security 115 13 AFP Regional Security and Defense Cooperation 131 14 The Evolving Role of the AFP: Skewing Towards Non-Traditional Roles 141 15 Regional Cooperation on Civil-Military Coordination in Disaster Response 155 – Crisis or Opportunity? JOINT TECHNICAL WORKING GROUP 175 about the authors 177 TABLE OF CONTENTS v FOREWORD This publication comes at an auspicious time in the history of the Armed Forces of the Philippines T(AFP). In 2011, the AFP formally began its institutional reform with the adoption of the Internal Peace and Security Plan (IPSP) “Bayanihan”. The IPSP puts on paper the positive strides that AFP units operating on the ground have accomplished. For many years, our soldiers and officers have carefully and painstakingly tried to rebuild their relations with communities and stakeholders, with lessons the IPSP Bayanihan has harvested and put into a formal document that now guides the doctrines and rules of engagements in the military. Alongside such efforts, the Major Services of the AFP embarked on crafting their respective transformation roadmaps, which allowed the units to collectively realize the future of the armed forces that they wish to become. True to the spirit of multi-sectoral engagement, civilian-led advisory boards were created to help guide the transformation roadmaps in achieving their agenda, with distinguished members of the business, academe, and public service as members. Likewise, the AFP has also formalized its commitment to the Bantay Bayanihan, a network of civil society organizations (running now to almost 180 CSO-members nationwide), to allow the group to be the oversight in the implementation of the IPSP Bayanihan. Since November 2011, the AFP and Bantay Bayanihan network has institutionalized the quarterly dialogue with AFP Unified Commands, Divisions, and Brigades that allowed for candid and serious discussions between AFP officers and civilian groups regarding combat and non-combat operations of the AFP. The IPSP Bayanihan and the Transformation Roadmaps, together, serve as the platform of the AFP reform agenda. Most significant in these undertakings is the fact that the drive to transform is coming from within the organization. The AFP is transforming to be a better armed forces that is more responsive in the fulfillment of its constitutional mandate as protector of the people and the State. It is recognizing the changing landscape of the Philippines as a democratic country, and the need for the military institution to adapt to this changing environment. It recognizes the increasing demand to address and manage territorial concerns due to competing claims to resources. I am happy that military officers and civilian researchers have worked very closely in the true spirit of Bayanihan to put together the essays in this publication. Indeed, the discussion in this publication will greatly help the AFP in further realizing the needed transformation that the military requires to become a credible and modern defense force, worthy of Filipino pride. Maraming Salamat at Mabuhay ang Sandatahang Lakas ng Pilipinas! GENERAL EMMANUEL T BAUTISTA AFP Chief of Staff, Armed Forces of the Philippines FOREWORD vii Security Sector Reform: Modern Defense Force philippines 1 Dreaming of a Modern Defense Force by Jennifer Santiago Oreta, Ph.D. Security Sector Reform: Modern Defense Force philippines The paradox of transitional societies is that eye of security groups, while groups supportive Twhile it attempts to strengthen and deepen of the state enjoy its friendship. During periods the institutionalization of basic governance of democratization, security forces naturally infrastructures, it also requires a significant experience, too, a transition – from “waltzing democratic space for people to engage with a dictator” 1 and exclusive power circles, to in democratic governance. It is a paradox periods where inclusivity and people engagement since institutionalization requires regularity, become the new normal. standardization, and routinization of practices, which are easily disrupted, sometimes even In the Philippine context, the military and the compromised if people’s engagement is not police forces were heavily utilized by the Marcos’ managed well. During transition period, different government during the infamous martial law era groups may push for specific policies and (1972-1983), and even way after the official lifting measures on how to address issues confronting of martial law until its fall in 1986. In more than society. If avenues for people’s participation a decade of the cozy relationship between the are unclear, this can have detrimental effects dictator and the security forces, hundreds have on the standardization-routinization demand reported to have been victimized by the state’s of institution building. Policies that are within strong hand, while others remained disappeared, the ambit of “good governance,” if unpopular, mostly those who belong to the opposition and/or can even succumb to public pressure. Yet, militant groups. people’s engagement in governance is also the fundamental essence of democracy. A healthy Naturally, when the failed coup d’etat of then level of people participation ensures that the Defense Minister Enrile produced the severing political system is relevant and responsive to of ties between the defense department people’s needs, and transparent and accountable and Malacanang (with then AFP Chief of Staff to merit the trust of the voting public. Fidel V. Ramos joining the beleaguered Enrile), the attitude of the people was expectedly Security governance is among the most ambivalent – largely due to the perception that it controversial and contested terrain in transitional was simply a staged play of the dictator, which societies. Society always has ambivalent feelings had one-too-many. It was the intercession of the towards security forces, depending on which late (Catholic church’s) Jaime Cardinal Sin that side of the fence they are in. This is precisely swayed the favor of the people and eventually due to the fact that it is the security forces – in produced the now famously regarded “people this essay, the military and the police – that are power”. In this historical juncture, it was the usually utilized by the state to protect its survival. military’s swinging of loyalty, from Marcos to Oppressive leaders use the military and police to Corazon Aquino2 that catalyzed the political suit their agenda – to quell dissent and remove change. This greatly changed the perception of possible roadblocks to their rule. Expectedly, people – especially the fence sitters – favorably groups critical of the state receive the watchful towards the military. 1 Raymond Bonner, Waltzing with a Dictator: The Marcoses and the Making of American Policy.