Addressing Societal Divides Stories of Bridging Leadership Volume I Addressing Societal Divides: Stories of Bridging Leadership Table of Contents

Table of Contents Chapter I 4 The Bridging Leadership Fellowship Program 10 Fellows Stories Jainab Abdulmajid 19 Governor Mohamad Khalid Dimaporo 26 General Benjamin Dolorfino 36 Lt. Col. Gavin Edjawan 54 Major General Raymundo Ferrer 66 Malcolm S. Garma 76 Florante Gerdan 86 Camilo Gudmalin 94 Brigadier General Rustico Guerrero 100 Hadja Pombaen Karon-Kader 107 Aurora Sonia R. Lorenzo 114 Dr. Alinader Minalang 125 Conclusion 137 Production Committee 141

2 3 Addressing Societal Divides: Stories of Bridging Leadership Chapter One

The Cycle of Inequities. Source: World Development Report 2006 The pressing need for an effective lead- ership approach to approach social inequity provided the impetus to con- duct research on Bridging Leadership. Chapter The Synergos Institute commissioned a global research project in 2002 to ex- I plore the emerging phenomena that was EACH TIME TESSIE FERNANDEZ would check on the operations of the non-government or- called Bridging Leadership. The project brought together practitioners from dif- ganization that she headed, she could not help but notice the bruises on the arms and faces of the ferent parts of the world to write cases female workers. Whenever she would ask about these, the women would often give excuses, but and articulate this leadership approach. their voices and eyes often betrayed their words. It culminated in the development of 20 In his book, “Solving Tough Prob- have been undertaken by individu- cases on Bridging Leadership and a pa- lems”, Adam Kahane posits that the als and organizations. While these per by Steve Pierce entitled, “Bridging During their less guarded moments, up to the time his mother checked out The Cycle of Inequities reason why people are unable to solve may have succeeded in making peo- Differences and Building Collaboration: some of the women admitted that the of the city hospital three days later. many difficult problems is because ple aware of the magnitude of soci- The Critical Role of Leadership”. This bruises were inflicted by their part- Inequities occur because one group of people do not understand the “com- etal problems, none of these have ad- research successfully established the ex- ners. Others were more open about On the day of their birth, Esmail’s and Mi- people enjoys more advantages than plexity” of the problem. The problems dressed pervasive social inequity or istence of the Bridging Leadership ap- the beatings they endured, speaking of chael’s fates have been predetermined by other groups—not because of the of poverty, poor access to health, and had concrete development outcomes. proach; its appropriateness in addressing these the way they spoke about their their very circumstances—their race, their works they have done but because of other inequities are simply too com- inequities; and its place within the exist- daily chores, as if being slapped and parents’ income and education, their loca- the circumstances of their birth. Of- plex to be resolved using conventional In addressing social inequity, technical ing universe of leadership approaches. kicked was the most natural part of tion, and their gender. Statistics indicated ten, this comes about from mindsets problem solving methods. solutions are the easiest to formulate running a household. To Tessie’s dis- that Michael had a far greater chance of or behaviors that are embedded in and and implement. The bigger challenge Although the global research project may, none of the women she talked to surviving his first year of life than Esmail propagated by societal structures and To adequately deal with inequity, it is getting people within communities did not go beyond these papers , Prof. felt they could do something to end did. From the outset, the odds seemed to institutions over the years. is important to understand why and and societies to recognize the need Ernesto Garilao of the Asian Institute their suffering. It was their fate, they favor Michael much more than Esmail: how it came about. for change and agree to go through a of Management decided to continue said, and there was nothing that could Michael could expect to complete 11 years Consider an agricultural laborer work- possibly painful and difficult change the application of the Bridging Lead- change that. When she asked village of formal education, versus Esmail’s less ing for a powerful landlord. Illiteracy and Having understood the anatomy of in- process. This is no different from what ership framework and do further re- authorities, she found out that there than one year; he could hope to live up to malnourishment may prevent him from equity, the next step is to identify the Heifetz calls adaptive work. To take search on it. His vision was to bring it were no legal or any other mechanism 70 years, compared to Esmail’s 54. Esmail, breaking free from the bondage of pov- challenges that a leader who wants to people through this process, one needs to more people, in the hopes that they available to help the women. on the other hand, was less likely to have erty. Moreover, he is likely to be heavily take on social inequity would have to a leader who will take on the challenge. would become the leaders that would access to clean water, sanitation, good indebted to his employer, which puts him deal with. If inequities operate at the address the roots of social inequity. Tessie knew she had to do something schools, and good income opportunities, under the landlord’s control. Even if laws level of deep societal structures, con- Leadership approaches are usually to put an end to violence against wom- compared with Michael. were in place to enable him to challenge ventional change management mod- defined by the context in which they The Continuing Research en, but she knew that piecemeal fixes his landlord’s dictates, his illiteracy would els will not suffice. are taken. Different situations require would not work. Instead, she decided Esmail and other infants who share the make it difficult for him to access the po- different leadership approaches. Since of AIM to do things differently. same demographic profile would most litical and judicial institutions that might Having identified the challenges, the social inequity results from the su- likely not enjoy the opportunities that help him assert his rights. In many parts next step would be to find or create perimposition of complex situations In October 2002, AIM ran the first ***** Michael would, and would most likely of the world, this distance between land- the leader who would be able to ral- and has a deep-rooted yet continually Bridging Leadership training work- remain poor and uneducated through- lords and laborers is compounded by ly people toward reducing or ending evolving context, several questions shop for heads and senior officials of Esmail and Michael were born on the out their lives—unless someone does entrenched social structures: landlords these inequities. This leader should be beg to be asked: Is there a leadership civil society organizations, using the same day to totally different circum- something differently for them. typically belong to a dominant group de- able to account for the level of com- approach that provides a way to ad- Synergos cases that related the experi- stances. Esmail, whose parents have fined by race or caste, while tenants and plexity of the situation and propose a dress inequities or similarly complex ences of Tessie Fernandez, Parawagan had little formal schooling, was deliv- **** laborers belong to a subordinate group. way for people to address it. social problems? Is there a leadership and Howard Dee. Professors Gavino ered by the village medicine woman Because social norms do not allow approach that proposes a way forward and Garilao handled the sessions, at- inside their nipa-thatched hut in the The stories above illustrate the impact of members of these groups to intermarry, tended by the most prominent figures The Search for a that accounts for the inherent dynam- fringes of the Autonomous Region in complex socio-economic issues on the group-based inequalities are perpetuated ic, generative, and social complexity in civil society. Muslim Mindanao. Michael, whose lives of people. They show the inequities across generations. Over time, this cycle Leadership Approach to of societal issues? Is there a leader- parents were both college graduates, that people live with and influence the is entrenched in the institutions that gov- Address Inequity ship approach that allows us to bring The sessions were very well received. was delivered by a team of health pro- lives of succeeding generations, often ern the behavior of a state or society. together people within a system to The participants accepted the rele- fessionals who checked the baby’s vital without the promise of change. Through the years, many leadership change their systems and institutions? (continued on page 6) signs from the moment he was born How, then, does one deal with inequities? and social development programs

4 5 Addressing Societal Divides: Stories of Bridging Leadership Chapter One

Intra-country statistics show how social inequity plays out in numbers The table below illustrates how certain indica- The inequities are most pronounced in the case of the Autono- tors change depending on where a person lives in the Philippines. mous Region in Muslim Mindanao. In short, people who live in Quality of Life Indicators for Basulta and ARMM (Table 1) Muslim Mindanao will likely live shorter lives, be less educat- ed, have less access to infrastructure, have less economic op- portunities, have limited access to health and generally have a Indicators Basilan Sulu Tawi-tawi ARMM RP Int’l Comparison poorer quality of life.

Population 332,628 619,668 322,317 — 78.6 M (2000) Resolving inequities requires far more complex interventions. They will, at the very least, require Life third order change, defined by Steve Waddell (2005, Societal Learning and Change) as change Senegal 52.7 Expectancy 60.2 52.3 50.8 57.4 69.8 that is dynamic, social and generative. Benin 50.7 at Birth Table 2. Different Levels of Change (HDR, 2004)

Probability at birth for not 18.1 28.6 29.7 — 7.4 Gambia 29.6 surviving to Gabon 28.1 age 40 cohort (PHDR, 2002; HDR, 2004) Infant Mortality — — — 63 29 Sudan 64 (HDR, 2004) Lesotho 64 Families with Access to water 55.9 29.9 11.4 61.6 86 Chad 27 (APIS, 1999. Togo 54 WDI, 2000; HDR, 2004) Poverty Incidence Zambia 72.9 (NCSB, 2003, 63 92 75.3 62.9 36.9 Malawi 65.3 HDR, 2004)

Ave. Annual Per Capita In- P13,193 P 7,850 P11,349 — P48,816 (MM) — come (FIES in PHDR, 2002) Poverty in a community, for example, has multiple causes, and even if causes are identified, there Poverty depth 16.7 37.3 25.8 — 7.2 — are often a range of complicating factors and conditions that make solving them difficult. (PHDR, 2002)

Per cent HS Take the lower achievement scores of students in the municipality of Sta. Fe in the province 28.6 18.1 34.2 — — — Graduate of Nueva Vizcaya. The Department of Education was blamed for the poor performance of the students. Further analysis showed, however, that more than the deficiencies of the school, the Adult Functional students’ socioeconomic circumstances had a great bearing on their performance. Some of the Illiteracy Chad 54.2 51.9 42.3 47.3 — 7.4 students went to school hungry so even with superior teaching materials and techniques, the (age 15+) Sudan 40.1 students would not have been able to absorb their lesson. It was also customary for students to (PHDR, 2002, Haiti 48.1 HDR, 2004) go on a ‘vacation’ from school to help with the family livelihood, affecting learning. Moreover, they were not encouraged to do their homework at home, impeding learning. Other factors that led to School enrolment the problem was the peace and order situation in the area and the poor health of the children. of 6-12 yrs. old — — — 0.583 — Senegal among the poor- Mauritania To address this, different stakeholders have to work on the various issues: education officials est (WB, 2003) need to address the lack of facilities, teacher competency, and school materials; parents need % Basic 82.1 77.7 — — — — to improve the student’s study habits; the local government and civil society need to help address Enrolment Rate the families’ socioeconomic and security concerns. Cohort Survival Rate 34.3 29.7 42.8 33.96 — — (PHDR, 2002)

Source: as stated per indicator. National Statistics Coordination Board (NSCB), Human Development 7 Report (HDR), World Bank (WB), Family Income and Expenditure Survey (FIES) Addressing Societal Divides: Stories of Bridging Leadership Chapter One vance of the framework in their work; These experiences provided more in- study of leadership explores how a per- Framework has three phases: Own- saw the importance of dialogue; and sight that led to the further develop- son’s character, values, attitudes, motiva- ership, Co-Ownership, and Co-Cre- agreed on the importance of co-own- ment of the tions, and competencies are developed ation. The acts of leadership for each ership. They also expressed the need concept of Bridging Leadership. It to enable him to achieve his goals. phase are discussed below: to propagate the Bridging Leadership also underscored the need to refine framework among more stakeholders. the thinking and revisit the founda- Another aspect to explore in studying OWNERSHIP. The process of owner- tions of this leadership approach. the personal nature of leadership is the ship begins with the leader. He realizes As the clamor for more sessions inten- role of passion. This is important be- his leadership capital, the amalgamation sified, AIM held more sessions, which cause leaders who pursue goals with of his assets: his values and principles; his AIM’s Contribution to the were attended by participants from di- passion are more often successful than sense of mission; his education and train- verse sectors. Leadership Approach those who do not. ing experience; his social networks and his personal relationships. He looks at By 2004, AIM had conducted 10 Bridg- AIM’s role in the initial research pro- Bill George, in his book “True North”, societal inequity as part of a wider system ing Leadership programs. These pro- ject and its appointment as the institu- wrote that leaders “must first understand of systems and is able to see the different grams had two objectives: (a) to devel- tional host of the Center came about themselves and their passions. In turn, subsystems and components that make op the capacities of leaders who would due to its extensive experience in their passions show the way to the purpose up this complex system. He can identify programs. The institutional arrange- Thus, the Bridging Leadership Fellow- be able to address societal divides, and management education. In Asia. AIM of their leadership. Without a real sense of the different stakeholders involved and ments would hopefully lead to a more ship Program came to be. Unlike the cas- (b) provide a venue to enhance the has been running post-graduate pro- purpose, leaders are at the mercy of their understands their interests in the issue; the empowered citizenry and more re- es and workshops that merely discussed framework through the interaction grams on general management and egos and narcissistic vulnerabilities.” resources they have and their capacity to sponsive institutions that would ulti- the dimensions of societal inequity from with the participants. Bridging Leader- development management for over 40 support or to block the work to address mately reduce inequity in society. a conceptual level, the fellowship pro- ship modules were also offered in the years. It is also one of the first academ- AIM thus posits that leadership develop- the issue. Stakeholder analysis is impor- gram was envisioned to influence the ac- Masters in Management course and in ic institutions to integrate the study of ment must align the purpose of the leader tant because it allows him to see whether Having defined the qualities and the role tual work of leaders on the ground, in the the executive development program. leadership in its Masters in Business with the work that he is doing. This is, ad- convening these stakeholders is within the of a bridging leader, AIM’s next step was hopes of making them more effective. It Management and Masters in Develop- mittedly, a long process but it is a process capacity of his leadership capital. set: build up a cadre of bridging lead- aimed to strengthen the capacity and op- That year, AIM received an endow- ment Management programs. that must be undertaken nonetheless. ers—leaders with the character, values portunities of the leaders so that they can ment fund to establish the AIM- Once he is able to recognize the ineq- and competence to transform institu- make use their positions to address the Mirant Center for Bridging Societal The integration of the Bridging Lead- Defining acts of leadership uity and the systems that cause it, he tions and reduce societal divides through systematic causes of inequity. By identi- Divides. The Center was formed to ership framework into AIM’s aca- decides that he wants to do something participative development. These will be fying these leaders and the specific issues continue research on the BL Frame- demic programs somehow led to the The second concept that AIM inte- about the issue. The intensity of his leaders that people can trust, and who re- they need to work on, and providing the work and to pursue programs in the integration of AIM’s concepts into the grated into the Bridging Leadership response is dependent on whether he inforce that trust beyond themselves by leaders with the tools to address these is- actual application of the framework. Bridging Leadership Framework. framework involved defining “acts of is able to relate his response to his life building institutions that promote equity, sues, the fellowship program hoped to leadership”. AIM subscribes to the mission. This response can be articu- inclusion, peace and prosperity. They are start the hard work of reducing inequi- One program focused on Bridging Lead- Leadership is personal concept that leaders can be developed. lated in a personal vision and mission. to be the expression of AIM’s mission to ties – right where they existed. In short, ership formation. This was a two-year Therefore, leadership can be devel- contribute to the development of equita- the fellowship program would bring the fellowship for 10 selected leaders to be The first concept that AIM embedded oped within individuals who are will- CO-OWNERSHIP. Once the bridg- ble Asian societies. Bridging Leadership concept to life. assisted in bridging the societal divides into the Bridging Leadership frame- ing to learn. This does not contradict ing leader commits to a response to the they have identified. This gave the Center work is that leadership is personal. the fact that there are people who, be- issue at hand, he brings together the Recognizing that mere workshops The fellowship program was also seen the opportunity to use the framework in Dr. Eduardro Morato puts it very well cause of their circumstances, are pre- different stakeholders to collaborate would not suffice in creating and -de as a venue for the leaders to exchange Bridging Leadership formation. when he said that, “the biggest propel- disposed to leadership. toward addressing it. The underlying fining leaders who can bridge societal their ideas and experiences. By bring- ler, as well as inhibitor, to achieving life’s processes used by the bridging leader gaps, AIM decided it was time to put its ing leaders together, more ideas can be The Center also took part in the forma- personal goals is the person himself or From these concepts and the action are multistakeholder processes that resources in a program that will focus hatched and more possibilities can un- tion of the Pagtabangan Basulta, a con- herself” and that it is ironic that “there research work that it has done, the facilitate collaboration and dialogue on nurturing the skills of pre-identified fold. Over time, the program could be sortium of 15 Manila-based CSOs work- is not that much emphasis, either from AIM TeaM Energy Center posits the to bring diverse stakeholders together leaders and provide them with the tools the seedbed of collaboration among the ing with regional and provincial CSOs the school system or from the parents, following framework to further define toward understanding and agreement. to carry out their work on the ground. fellows for lasting impact in the lives of to improve the human development in- to grow and nurture a person” Bridging Leadership: These leaders would be mentored on people. With AIM guiding these fel- dicators (HDI) of the poorest provinces CO-CREATION. This is the segment specific problems they have identified, lows by the hand, the opportunity to Leadership studies cannot simply look at of southern Philippines. The consortium The Bridging Leadership where collaborative agreements are and provided technical guidance in help reduce inequity could be at hand. used human security as its development the outward actions of the leader as he operationalized into the hopes that they may rally multiple framework and Bridging Leadership as works to achieve his goals. It has to in- Framework collective action. These take the form stakeholders toward owning and ad- Written by Prof. Jacinto Gavino and the leadership approach in addressing clude an inquiry into his inner qualities of new institutional arrangements dressing problems that have persisted Marcia Czarina Corazon M. Medina, The proposed Bridging Leadership the problem of societal divides. which allows him to be successful. The that will result in more innovative and have oppressed people for so long. with assistance from Ton Reyes

8 9 Addressing Societal Divides: Stories of Bridging Leadership Bridging Leadership Fellowship Program

ward journey to understand his lead- Phase 1: Defining the Personal Response ership capital, his personal vision and • Leadership capital mission, before it takes him outside • Analysis of the societal divide The Bridging Leadership of himself to engage stakeholders and • Personal vision and mission to address the divide move toward collaborative action with • Time-bound objectives and tangible outcomes to be achieved (key Fellowship Program them. The fellow then looks both to result areas and performance indicators) himself and stakeholders as he renews • Strategies and resources to employ to attain the objectives his commitment to bridging divides. WIDE SOCIAL INEQUITIES CALL FOR BRIDGING LEADERS who have the vision, the will Phase 2: Engaging Stakeholders to come up with a Collaborative and the passion to work toward a society without divides; leaders who are able to analyze the Selection of fellows: Response Three channels were used to call for • Analysis of stakeholders dimensions of a divide clearly, identify all the stakeholders with whom they can form linkages prospective fellows: through the fel- of understanding and action, and pursue the vision to transform the lives of the marginalized. • Engagement strategy to be employed lows’ networks; AIM-Team Energy’s • Timeframe of engagement activities network; and a public announcement. These leaders will embody AIM’s efforts to eliminate existing divides that have kept many Asian • Analysis of the societal divide communities despondent and hopeless for a long time. • Collective vision and mission to address the divide Given the high expectations of the • Time-bound objectives and tangible outcomes to be achieved (key fellows, the fellowship slots were granted through a highly competi- result areas and performance indicators) In July 2005, the AIM-Team Energy tive nomination and screening pro- • Strategies and resources to employ to attain the objectives Program Objectives Center for Bridging Societal Divides cess. The prospective Fellow first announced the selection of the first had to be nominated by individuals Phase 3: Collaborative Action eight members of the first cohort of • Utilize their leadership capital instilled with values of trust, integrity who were of a respected standing in • Program Management the Bridging Leadership fellows. Se- and stewardship to address societal divides; a community or organization and • Implementation Mechanism/structure lected through a competitive process, who is serving at least, at the city • Resource Mobilization the chosen fellows would embody • Analyze the dimensions of the divide and identify all stakeholders with or municipal level. The nominator • Conflict Management AIM’s mission to the development of whom they could form bridges of understanding and action; must be able to personally attest to • Capacity-building more equitable Asian societies, and the accomplishments, character and • Monitoring and Evaluation Team Energy Corporation’s commit- • Convene and engage diverse stakeholders of the divide into owning resolve of the nominee. ment to ensuring sustainable develop- the problem and seeking a collaborative solution to the issues; Phase 4: Report to Stakeholders ment especially in Mindanao. The Center looked for distinct char- • Outputs and Outcomes acteristics among the applicants to the • Build the capacity of the various stakeholders to translate their col- • Remaining Challenges Through the program, the Bridging Bridging Leadership Fellowship Pro- laborative response into concrete strategies and effective programs • Sustaining the Collaborative Work Leadership Fellows would receive by making existing systems more participative and responsive to the gram. They had to be Filipino leaders guidance and tools to help them meet • Insights and Lessons learned inequities; and from civil society, the government (in- the complex challenges of nation- cluding its line agencies), or the military building, and pave the way toward who, through their work, have demon- Phase 5: Renewal of Commitment • Continuously develop self-mastery and enhance personal resilience lasting peace and inclusive growth in strated their commitment to addressing • Assessment of leadership capital the Philippines. to sustain the commitment to produce social outcomes. the complex social issues of the country. • Leadership goals in bridging societal divides • Learning Support for the Fellows To allow fellows to optimize their They also had to have sufficient ex- learning journey, the prototype pro- perience—at least 10 years of ser- gram was designed to run over two Program Roadmap to assist the fellows in their personal vice—and should, in their current years, in which they would partici- and professional development to meet leadership capacity, play a demon- leadership goals as a prerequisite to pate in various activities designed to The Bridging Leadership Fellows come strable role in effecting policy reform addressing the societal divide by defin- of their roles in their organizations or achieving social outcomes. strengthen and harness their leader- to the program with a specific societal or steering program success at the ing the managerial interventions re- networks. This is to achieve maximum ship capital so that they may engage issue to address, and well-defined lead- national or institutional levels to ad- quired and relating how the program impact at the quickest time. While The program is structured in a man- stakeholders and find solutions to ership goals in relation to the societal dress societal divides, without being would help in achieving these goals. the Center recognized that there were ner that allows fellows to plan and problems that create societal divides. issue. It provides fellows with access limited to the environment, energy many others leaders who would benefit regularly review their activities as they to resource providers and opportuni- or education. From the start of the program, the from the program, it also had to opti- go through the various phases of the ties to earn the confidence of poten- Center had made the decision to mize its resources and put this where bridging leadership approach. It be- tial partners. The program is designed Most importantly, they had to articu- choose fellows who were in a direct po- the potential yields were biggest. gins with the fellow going on an in- late clear leadership goals in regard to sition to bring about change by virtue

10 11 Addressing Societal Divides: Stories of Bridging Leadership Bridging Leadership Fellowship Program

The Program’s selection committee Nominees for the Fellowship were evaluated according to: From the cohorts, the most frequently lowed one to move from one phase to general idea of where we were going evaluated applicants based on the sub- identified divides existed in the areas another—co-creation, ownership and but we were willing to experiment mitted documents, referrals, and per- • their demonstrated leadership record; of health and education. Fellows also co-ownership—not necessarily in that and learn along the way about what sonal interviews. Prospective fellows • the potential impact that the program may have in improving their abil- encountered issues in housing, child order. For instance, o-creation could works and what doesn’t.” Exercises had to clearly define their leadership ity to resolve societal divides; trafficking, violence against women, lead to co-ownership which leads to and tools like the Leadership Journey, goals for the duration of the program and the absence of basic services to ownership. Thus, these themes are in- Leadership Capital, the Myerrs Brigs and articulate the impact of these • the breadth of their perspective; people. There were cross-cutting con- terrelated and they affect each other. Temperament Index Testing and Pro- goals on the resolution of the societal • enthusiasm for continued learning; and cerns as well – the rido, peace and cessing, and Genogram Analysis were divide they are addressing. The cho- • their prospective contribution to the network of Bridging Leadership order, armed conflict, cultural issues, introduced as fellows expressed the sen fellows had to demonstrate their Building bridging leaders and environment protection. how exercises that gave them glimps- integrity, dynamism and the resolve to practitioners. es of their strengths allowed them to make a difference in the divided com- The process of building bridging lead- Over the course of the program, it was grow as persons and leaders. munities they were bridging. ers evolved with each cohort, with the also demonstrated that the Bridging AIM-Team Energy Center learning Energy Center had initially planned to expected, and that they had to have Leadership framework was not linear. Linking leadership initiatives with de- Three levels of screening were done. along with the fellows. “The program accommodate only ten fellows, they the combination of position, experi- Rather, it took on a snake-like forma- velopment outcomes. Recognizing The first screening was done by the is very much a work in progress, and it could not turn away so many promising ence and commitement for them to tion. Fellows saw that Bridging Lead- the shortcomings of other leadership program officer, along with other staff, continues to evolve, “ said Prof. Jacinto men and women whose sterling creden- effectively translate the program into ership was a dynamic process that al- programs in bringing about societal to check the completeness of the pro- tials and passion for service made them real action on the ground. Gavino, program manager. “We had a spective applicants’ documents and to worthy to be trained as bridging leaders. ensure that basic eligibility require- The Center also felt it was time to reach In 2008, midway through the second SECOND COHORT: ments were met. Those who made it out to more potential leaders, and that program, the third cohort started the to the short list were sent to the sec- there would be greater dynamism and fellowship program, this time with Lt. Col. Francis D. Alaurin. Commanding Officer, 37th Infantry Battalion, 6th Infantry Division ond level of screening, which included shared learnings from expanding the co- funding from AusAid. Fifteen fellows the preliminary interview, conducted hort size. Until then, the program took in comprised the third cohort—all from Dr. Hannbal H. Bara. Professor, MSU Jolo, Head, Waqaf Foundation by the Executive and/or the Associ- fellows from all over the Philippines. Mindanao, in support of AusAid’s var- ate Director with the Program Officer. ious projects in the island province. Ms. Ma. Easterluna S. Canoy, Executive Director, Kitanglad Integrated NGOs (KIN) The interview, ideally done personally, This time around, the Center was Likewise, all fellows in the fourth co- Dr. Lorna D. Dino, Director, National Educators Academy of the Philippines gave the applicant the venue to elabo- more particular about its criteria that hort were also from Mindanao. rate on what he had written in his ap- fellows should be in positions that Dr. Saffrullah M. Dipatuan, Vice Chairman, Bangsamoro Development Agency plication documents. The third and -fi would allow them to intervene direct- Most fellows completed the program, nal screening was the panel interview, ly. By then, the Center had recognized with just one fellow from each of the Dr. Abdullah B. Dumama, Director IV, DOH – Center for Health Development XII which was conducted by the Advisory that the program required much more cohorts unable to comply with all the Board of the Center, including the from the fellows than was originally requirements of the program. Col. Natalio C. Ecarma III, Commanding Officer, 3rd Marine Brigade, Philippine Marine Corps Executive Director. At the end of the panel interview, the Advisory Board Hon. Munib Estino, Municipal Mayor, Panglima Estino, Sulu THE FIRST COHORT deliberated whether to accept or reject a prospective fellow. Lt. Col. Carlito G. Galvez, Assistant Chief of Staff, Civil Military Operations, G7, 2nd Infantry Division • Major General Raymundo Ferrer , Commanding General, 6th By far, the selection process has Infantry Division, Philippine Army Mr. Malcolm S. Garma, Assistant Superintendent, Department of Education – Cabanatuan City Division worked efficiently, with most of the -se • Mr. Ayi Hernandez, Executive Director, Tabang Mindanaw lected applicants finishing the course Hon. Florante S. Gerdan, Municipal Mayor, Santa Fe, Nueva Vizcaya requirements and, more importantly, producing outputs that brought about • Dr. Danda Juanday, Executive Director, Bangsamoro Mr. Vladimir A. Hernandez, Director for the Philippine Programme, Community and Family Services considerable improvement in the lives Development Agency International (CFSI) of people they worked with. • Mr. Harvey Keh, Executive Director, Pathways to Higher Hon. Algerico H. Irizari. Municipal Mayor, Lanuza, Surigao del Sur he cohorts Education T : Mr. Jose Mari M. Oquiñena, Head of Operations, Gawad Kalinga Foundation In 2007, sixteen applicants from the gov- ernment, military and civil society were • Mayor Sonia Lorenzo, Municipality of San Isidro, Nueva Ecija Hon. Albert Que, Municipal Mayor, Bongao, Tawi-tawi chosen to be part of the second cohort of the program. Although the AIM-Team • Ms. Deddette Suacito, Executive Director, Nagdilaab Mr. Teodulo R. Romo, Jr., Regional Director, DSWD Central Visayas Foundation

12 13 Addressing Societal Divides: Stories of Bridging Leadership Bridging Leadership Fellowship Program

change, the Bridging Leadership Fel- In another instance, three fellows from exercise, as it allowed the fellows to mentors included Jaime Galvez Tan, questions have emerged, among them: The Evolving Role of lowship program defined leadership by the second cohort—a mayor, a military map the flow and evolution of their undersecretary of the Department of • Where and how has the bridging relating their work with development officer, and an officer of an NGO-- thoughts over time. As a result, more Mentors Health and General Ferrer, who was leadership framework failed? outcomes. The Center noted that many worked together to make a house build- periods of reflection were introduced part of the first cohort. • What are the processes that leaders were working toward various ing project possible in Sulu, a no-man’s in subsequent sessions while journal- Mentors played a critical role in the worked? objectives, but that these did not result land due to security problems. For this keeping was actively pursued. fellowship program since they took re- Mentors of the third cohort were • What are the top three deepest di- in changes in human development in- initiative, Sulu Mayor Sanglimaistin sponsibility for guiding and over-seeing mostly practitioners: Vic Ramos the vides of the Philippines/ region? dicators or related outputs. The Center provided the land, Gawad Kalinga di- Learning from the ground. Site visits also fellows on a one-to-one basis as they im- Department of Environment and Nat- • How can the example of Philip- saw the need to fill this gap by directing rector –mobilized the materials and gained greater significance as the pro- plemented their action plan. A mentor ural Resources (DENR), Dinky Soli- pine bridging leaders be relevant its fellows toward specific objectives. It labor, while General Ecarma provided grams progressed. Initially, AIM relied was neither a formal trainer nor a pro- man of the Department of Social Wel- to other countries in the region? likewise noted that most leaders knew security. As a result, housing was made on the fellows themselves for updates fessional consultant to his/her mentee. fare and Development (DSWD) were • How can local institutions move each other socially, and that there was available to community residents who on how their action plans were moving The mentor served as a colleague to the included in the list of mentors, with stakeholders in addressing hin- much to be achieved if synergies could would have never had these homes if either through phone or email conversa- fellows with whom they can cultivate a Prof. Garilao as the sole academic in drances towards social change? be tapped. To create this synergy, it these three fellows, who would never tions. However, long-distance arrange- mutually trusting professional relation- the pool. A drill master guided the fel- • How is change leadership sus- encouraged greater interaction among have delivered the houses individually, ments could be very slow. Program man- ship in which they can be honest with lows in formulating their Vision and tained outside our programs/ in- leaders with the end-view of getting did not work together. agers saw how direct interaction with each other about professional dilem- Mission statements, and in identify- terventions? them to work toward development. stakeholders gave them more immediate mas and where they can expect a robust ing key result areas and indicators for • Assuming that improvements in A structure and a guide. The Bridg- feedback and allowed for faster interven- but sensitive response. They were not their programs of action. the community were seen, how Peer learning. As the program pro- ing Leadership framework, fellows tions. Indeed, the best stories to emerge around to provide solutions to the lead- can we attribute these to BL (in- gressed, the facilitators saw what fellows acknowledged, was not entirely new from the program were those where the ership challenges faced by their men- Fellows were paired with mentors stead of other extraneous vari- found most valuable among the activi- to them in that they had been instinc- Center was actively and directly involved. tees, but rather – by asking appropriate who have gone through similar issues: ables)? ties. Peer learning and the fellowships, tively doing some of its components As a result, there was a greater impetus questions – supporting them in finding the Vice-Governor of Tawi-Tawi, who • What are the relationships be- for instance, were often cited for the even before they joined the fellow- for more site visits that would bring the their own solutions. was working on the environment, was tween and among divides? depth of the insights shared and the ap- ship program. However, having a Center and mentors closer to people on paired with DENR’s Ramos; and an • iWhat nuances should be made in propriateness of the examples shared to concrete framework was something the ground. Fellows found this valuable Mentors looked at ways by which the Assistant Secretary of the DSWD had the contextualization of BL: (a) BL the experience of other fellows. Many that they found helpful; it provided and the Center found this worthwhile to program will be able to capture the Soliman as mentor. to program design, (b) program fellows said it was comforting to get a structure to what they were doing. pursue in spite of its logistical and finan- personal transformation of the fel- to public? together with people who shared and Conversely, the framework made their cial implications. lows. They could be described as Some mentor-mentee relationships • Is BL more effective in particular understood their exact thoughts and individual activities part of a coherent a “critical friend” and a competent went beyond the program. Mayor Son- social issues than others? circumstances. The fellowship program whole instead of being random activi- Creating scale. As the program pro- “informal educator.” The fellows and ya – of Nueva Ecija initially served as offered a sense of sanctuary; it was a safe ties not grounded on a larger purpose. gressed, concerns were raised on how mentors were to have regular contact mentor of Mayor Disumimpta of Lanao space to retreat to. To foster this envi- The Bridging Leadership framework to make more people aware of the with each other, and, wherever pos- del Sur but has since become his learn- Moving forward, the Center is keen ronment, the Center took a more de- served as a guiding tool and a road- Bridging Leadership framework. The sible, should have a pre-agreed agenda ing partner. Sonya took a keen interest on using the learnings from the pro- liberate approach to sharing, fostering map that brought order, clarity and a center promised fellows that it would of issues to review or discuss. in Disumimpta’s program; she went to gram to contribute to building knowl- a sense of belonging among the fellows. system to the activities that the fellows find ways to bring Bridging Leader- visit health units at the site and met with edge and theory on leadership for so- were undertaking. ship to a core group of change lead- For the first cohort, the mentors were stakeholders. Long after the program cial outcomes. Through the evaluation The power of networks. The network ers who could cascade this to others, mainly from AIM and, expectedly, had ended, the two corresponded with each of its work, the Center aims to gauge that the program brought was also Moments of reflection. The fellows ap- in the process building scale for the a more academic approach toward the other on their concerns on the ground, the effectiveness of the program, as valued by the fellows, who saw how preciated the moments of introspec- program. Starting with the second program. Fellows had to approach their with the Lanao mayor always referring well as the overall value of the fellow- this could enhance their development tion and reflection that the program cohort, core group building work- work plans using logical frameworks to Sonya as his mentor. ship award to the fellows, their organi- work. Even while the programs were provided. Many of the fellows did not shops were offered which eventually and project management systems, zations, and the attainment of societal while paying great attention to detail. goals and outcomes. going on, fellows tapped into the net- have this luxury of space and time to became a full-year program, fulfilling Research and Evaluation work to get things moving in their are- think about their priorities and their the fellow’s expressed need for more as of work. When a truck bearing relief work, considering that many of them full-time training and development. Recognizing the value of perspectives Evaluation will be done collabora- The Bridging Fellows program is a learn- goods encountered a military blockade, worked in conflict zones. Having a The Center also convenes social inves- from the field, the Center added prac- tively, with the Center currently de- ing opportunity. Through the fellows’ for example, the managing director for “quiet time” allowed them to step back tors where Fellows can present their titioners to the pool of mentors of the veloping guidelines around research experience, the Center hopes to continue relief aid in Cotabato called a military and look at themselves and their stake- Bridging Leadership work which is second cohort, keeping a 50:50 ratio that will employ cooperative inquiry its research on leadership development fellow in his batch who readily allowed holders from the much wider perspec- helpful in mobilizing resources for the between professors and practitioners. – a participative approach where co- as it applies to societal divides. the passage of the vehicle. tive of development. Journal-keeping Fellows, and for advancing the Bridg- Among the professor-mentors were researchers conduct research with also proved to be a well-appreciated ing Leadership advocacy. Professors Ernesto Garilao, Jacinto leaders on leadership. This will be dis- Gavino and Jun Kanapi. Practitioner- From the fellowship, possible research cussed with the fellows as soon as they

14 15 Addressing Societal Divides: Stories of Bridging Leadership Bridging Leadership Fellowship Program

The Bridging Fellows her authentic self as a leader, relative – SESSIONS 11 TO 14 with the Center’s trainers co-creation work in response to their Co-Creation since the Second Leader- to the particular societal divide that s/ This module will demonstrate the de- The session is held for one whole day. respective divides, and ship Workshop eadership rogram L P he personally owns and responds to; velopment and implementation of • Finalize their Co-Creation • Derive insights by listening to Process • Acquire the appropriate dia- social innovations that will lead to so- plan and have the opportunity to im- their co-fellows share their experiences The Program’s Learning Support to logic processes and tools to make the cietal equity and that will be carried The Second Leadership prove this by having their first session • Accomplish a timeline of ac- the fellows has four components: initial preparations for establishing out through new institutional arrange- Workshop with their assigned mentors. tivities for the remaining months of • Cohort Training- At least co-ownership around the particular ments that are characterized by em- The four-day Second Leadership Work- their fellowship three intensive 3 to 5 day seminars societal divide that is important to powered stakeholders and responsive shop will be mainly devoted to discussing The Second Leadership Workshop which focus on development of lead- the theory behind, as well as the skills and him/her and the community; and institutions partnering with each other. starts off by allowing the fellows to ournaling ogbooking ership capital, skills and competen- tools necessary for, the third segment of J /L • Begin visualizing co-creating reflect on how their qualities are Fellows are advised to keep a journal cies, personal commitment and re- the Bridging Leadership Framework: the the new reality that is important to The three modules are preceded by an grounded on their family background, or logbook of the endeavors they do newal. It will also serve as a venue to Co-Creation of new realities. The First him/her and the community Overview during which the Bridging which is done through the construc- in achieving their goals in the fel- share and provide peer review to the Leadership Workshop has allowed the The fourteen sessions of the five-day Leadership Framework is discussed, tion and consequent interpretation of lowship. The journal allows them to individual action plans of the Fellows. fellows to reflect on and articulate their Leadership Workshop are divided along with other key concepts that Genograms. document their reflections and de- • Seminar Workshop - At least personal Ownership of both their under- into three modules, following the support the framework. rive insights from their leadership two one-day group seminars focus- standing of and response to the societal di- Bridging Leadership Framework. After a series of learning sessions us- experience and at the same time, ing on knowledge acquisition and vide that they have identified. In addition, These are as follows: he irst eer ing different platforms, the fellows are these will be helpful for the research meeting with experts in the field. Op- T F P the first workshop has equipped the fel- given time to finalize their Co-Crea- purposes of the Center. The journals portunities to attend other training OWNERSHIP MODULE Learning Session lows with appropriate tools and processes tion Plan. They will also be introduced Peer Learning Sessions give the fellows can be a goldmine for data for future programs to suit the specific require- – SESSIONS 1 TO 6 that will aid them through the Co-Own- to an array of social investors they can the opportunity to review concepts cases, articles and other academic pa- ments of the Fellows are also available This module explores and makes ex- ership phase of establishing their Core approach to secure resources to im- from the preceding leadership work- pers related to the fellows’ leadership • Mentoring - Four face-to-face plicit the underpinnings of the fellows’ Groups and agreeing on a shared vision plement their Co-Creation Plans, and shop and share experiences, learn from experiences to enrich the Bridging mentoring sessions with designated pro- personal commitment to addressing a and response. The fellows are then expect- will be given the chance to draft their their co-fellows, and garner insights Leadership framework. fessors of AIM over a 20-month period. particular divide. It will also give the ed to come into the Second Leadership Resource Mobilization Plan. from their experiences in the Bridging Sessions will focus on issues and chal- fellows the opportunity to study the Workshop armed with sustained Own- Leadership process. In this manner, it lenges of implementing the action plan systemic nature of the divide that they ership and accomplished Co-Ownership The fellows will meet with their as- Site visits and customized is hoped that the fellows will harness • Networking Opportunities- face, consider the stakeholders that that effectively puts them in the perfect signed mentors for a fine-tuning of workshops new energy, motivation and inspira- Group meetings with decision-mak- are involved, and offer a personal re- position to garner ideas and pointers on all their outputs as they prepared to These visits are held in between leader- tion to continue their work ers, influential people and resource sponse in the form of a personal vi- what specific Co-Creation interventions embark on leading Co-Creation once ship workshops and aim to get a bet- persons as well as one-on-one meet- sion, mission, objectives, key result to undertake and how. they go back to their respective as- ter understanding of each fellow’s work The first peer learning session focuses on ings with relevant institutions/indi- areas, and performance indicators rel- signments after the Second Leader- with first-hand information in the spe- reviewing and surfacing insights from viduals will also be scheduled. ative to the divide, as well as to his/her The objectives of the Second Leader- ship Workshop. cific areas. The site visits are conduct- Ownership and Co-Ownership phases own leadership developmental needs ship Workshop are for the fellows to ed by the Executive Director and/or of the Bridging Leadership framework. accomplish the following: Associate Director with the Program First Leadership essential to address the divide. he econd eer earning • Reflect on their family back- T S P L Officer. The site visits are also oppor- Workshop Peer learning sessions are usually not CO-OWNERSHIP MODULE ground and gain an appreciation of Session tunities for kumustahan or meetings Following the selection of fellows, the required—i.e., the fellows are welcome This whole-day peer learning session – SESSIONS 7 TO 10 how this affects their leadership quali- for updating, monitoring, checking on first leadership workshop formally to attend if they are available and have aims to gather the fellows and give This module will illustrate the importance ties and capital as Bridging Leaders how fellows are doing, and mentor- starts the BLFP. The workshop is a the resources to do so. The sessions aim them the opportunity to review the of the step-by-step guidelines for mov- • Share their leadership jour- ing. If necessary, site visits are also the combination of lectures and case dis- to achieve the following objectives: concepts from the preceding Leader- ing from a personal to a shared response neys after the First Leadership Work- venues where the fellows work with the cussions, reflection and sharing ses- • Firm up and finalize the fel- ship Workshop and surface insights in both within the organization where each shop to the other fellows, especially Center to conduct smaller-scale Bridg- sions, and structured and learning lows’ vision/mission and engagement their Bridging Leadership journey so of the fellows belong and eventually, with with regard to establishing their re- ing Leadership Workshops for their or- exercises and simulations. plan, and ensure they are ready for far, now with more focus on the Co- other stakeholders. In addition, the sec- spective core groups and reaching a ganization or community. The First Leadership Workshop aims multi-stakeholder engagement Creation phase of the framework. ond module will showcase a survey of shared vision and response to help fellows achieve the following: • Review and provide more exten- The main objectives of the second helpful processes for multisectoral and • Understand the theory be- • Understand the overall objec- sive input on the topic of Co-Ownership peer learning session are for the fel- Mentoring dialogic engagement, designed to lead to hind co-creating new realities and The mentoring component focuses tives, rationale, and roadmap of the • Surface learnings on the Co- lows to be able to: the development of co-ownership of the acquire the necessary skills and tools, on supporting the fellows as they go Bridging Leadership Fellows Program; Ownership phase of the Bridging • Be familiar with where they issue and the response to it in the form of such as charting social innovations, through their Bridging Leadership jour- • Understand the different seg- Leadership framework by allowing are in the Program Road Map a shared vision and mission. transforming institutional arrange- ney in bringing about positive social out- ments of the framework as well as oth- the fellows to share with each other • Take note of changes/shifts in ments toward responsiveness, build- comes. Mentors will serve as sounding er framework-related concepts; their experiences on engagement the personal and group/collective level CO-CREATION MODULE ing partnerships, and mobilizing re- boards that will help the leader see their • Reflect on and articulate his/ • Process the fellows’ learnings • Share their experiences on sources, that will prepare them for the complex divides from another perspec-

16 17 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories tive. Mentors are usually invited AIM to the stakeholders. This will include a fellows in terms of their application of faculty and development practitioners written report to the fellows and the the Bridging Leadership framework from the Center’s network. The execu- center incorporating their comments • Disseminate the necessary tive director and the associate director on the stakeholder report. information, documents, news and of the Center act as mentors themselves. updates to the fellows, mentor and the Fellows Stories Documentation, Research Center Through this mentoring process, it is • Surface insights from the hoped that tat the end of the one-and-a- and Communication fellows’ application of the Bridging Jainab Abdulmajid first lived in Sulu when she was ten years old. More than just leadership training, the half year period, the fellow’s leadership Leadership Framework in their work Born in Leyte in 1970, her family moved to Cagayan de Oro in BLFP is also a research program that potential will be enhanced. S/He would • Further enrich the Bridging aims to develop the Bridging Leader- 1975 and then to Sulu in 1980, however, this time she moved have adopted certain processes and Leadership Theory by validating the ship Framework, and to communicate only with her father and siblings, after her parents separated. methods that will help produce the de- framework’s assumptions and clarify- these developments to the Center’s sired social outcome. S/he should be able ing its definition The experience of moving around and growing up without her stakeholders. It aims to: to demonstrate a greater ability to deal • Ensure that information and mother at such young age taught Jainab to be independent and • Document all major work- with a particular situation than before. documents regarding the fellows and shops and activities of the program and strong. It made her very determined that nothing–not her fam- their organization are kept confidential organize the leadership development ef- ily situation, not her gender, and not even other people’s opinions The mentor is also responsible for the forts of the Center initial assessment of the fellow’s report Written by Prof. Jacinto Gavino with as- of what she should and shouldn’t be doing–would ever stop her • Document the progress of the sistance from Marie Antonette Reyes from accomplishing her goals.

As president of the student government ing with the communities in Jolo and during her senior year at Notre Dame Panglimatahil that she realized how of Jolo College, she further developed difficult the situations in those towns these characteristics by challenging her- were. Before, her life was confined to self with new responsibilities and gained school and her home. While she knew Jainab Abdulmajid confidence after successfully fulfilling that many in Sulu struggled with pov- Community Worker, them. During one instance of a potential- erty, she had never been confronted ly explosive situation between Christian with the enormity of the situation. She Patikul, Sulu and Muslim students, she chose to put said, “I didn’t realize that they were so aside her own anger with students who impoverished that they couldn’t even were criticizing her and instead she en- go to school, that even the food on the couraged everyone to work together for table was very hard to produce every the sake of peace in the community. Her day. In island municipalities, they choice was neither easy nor popular, but didn’t even have water.” one of the things she learned from that experience was, “To be a leader is to set What really disturbed her, however, aside my own feelings and interests when was how passive the people seemed necessary so that I can help more people.” to be in the face of their poverty and the neglect of the local government After graduating from college in 1991, (LGU). “The people really didn’t care Jainab began working for Child Surviv- that their situation was like that. It al Development Program of UNICEF was like they had no voice to say that that was based in the Sulu area. As a that shouldn’t be the case, that that part of the engagement, she was trained shouldn’t be their condition. They in conducting social preparation, mo- seemed to believe that it was their des- This write-up was written by bilization, and community-based plan- tiny to be in that situation.” Cecille Joyce Lao under the ning activities on the ground. She also That was the point when she embraced supervision of Philip Dy of the learned how to implement, monitor the role of community organizer. As AIM Team Energy Center for and evaluate projects. she understood the situation, what was Bridging Leadership. It was only when she started work- missing was someone to “wake up the

18 19 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

LGU and remind them of their respon- the province had a lot of potential–it erating within a community context previous engagements with CSOs to Bridging Leadership as a Ecarma admitted that the reason for the sibilities, and to make the citizens real- has a rich cultural heritage, beautiful and listening to the everyday concerns fingerprinting may not have been ex- help Ecarma involve the informal lead- ize what they could accomplish together beaches, and lush environment–she of the people, she also found herself Continuing Process plained to the farmers in a language or ers–who are sometimes the most influ- if they wanted to”. In line with this, she thinks, the enabling environment was veering away from development ef- manner that they could clearly under- ential leaders in the communities–in Jainab was selected for the third co- and her team began to help the commu- not yet suitable for tourists. forts to take up peace advocacy. stand. He offered to apologize to them these meetings. She was also careful hort of Bridging Leadership (BL) Fel- nity form people’s organizations (POs) by visiting their homes, individually. to explain the purpose and describe lows in late 2008. It was not the first that would better articulate their needs However, it wasn’t in Jainab’s character “I found myself thinking that that was the different interventions means in an time she had encountered the frame- and represent their interests. to merely wait for the conflict to subside my place–in peace work. I realized that According to Jainab, “I was impressed. orderly manner to make sure that the work. In 2007, she was acquainted before she carries out her work. Want- I felt more comfortable doing peace Here was a military commander who people knew exactly what to expect. In with Col. Natalio Ecarma III, the Lead When the intervention succeeded de- ing to be useful and to continue learning work than development work. That not only admitted his mistakes; he was addition, Jainab made use of her links Convenor of the CSO-led Grassroots spite the project’s challenges on peace and things, she began to renew her relation- was my priority. I thought that the sit- even willing to say ‘I’m sorry’ to them. with the provincial government to help Peacebuilding Project of the Office of development, it became one of Jainab’s ship with the civil society organizations uation required that we talk to people He was sincere. That’s what made me communicate the people’s concerns to the Presidential Adviser on the Peace most important sources of inspiration. (CSOs) in the area. There were two first about how they could participate think I could work with him.” Moreo- the governor and give the communities Process (OPAPP) in Sulu. At that The team facilitated linkages between questions on her mind: What are the in advocating peace before we could ver, the experience made her realize prompt and honest feedback on those point, Col. Ecarma was the Brigade the PO and various government and aid causes of the continuing conflict in the even begin talking about development.” just how necessary it was to bring the issues. This gave credibility to the efforts Commander in charge of the munici- agencies to make it easier for them to ac- area? and Why had more than a decade various sectors in Patikul together to of the local government and assured the pality of Patikul. He is a member of cess resources and to find solutions to the of aid and other interventions not allevi- The two, she realized, were not mutu- begin rebuilding trust and communi- people that they were sincere in their the second cohort of BL Fellows. problems. “To think that that we man- ated the poverty in the province? ally exclusive. Without framing devel- cation lines–especially at the commu- efforts to address their problems. As aged to accomplish so much with just the opment projects within the broader nity level–to order to lay the ground- Ecarma emphasized, “In dealing with The relationship between Jainab and support of UNICEF–what more can we In December 2005, Jainab became part of perspective of peace or accompanying work for peace in the area. people we build relationships. We build do now with so many more line and aid the Technical Team for the ACT for Peace peace talks with concrete solutions to Ecarma did not show any promise respect and trust. If we do not remem- 2 at start. She was ready to confront agencies present in Sulu?” Programme in Sulu. Although she was everyday problems like lack of liveli- The commitment in creating a peaceful ber this, we will not succeed.” Ecarma about his high-handed man- only responsible in monitoring the impact hood, poor schools, inadequate water, and progressive Patikul through non-vi- ner of dealing with the people over al- of the program from within the Provincial and insufficient healthcare, the mistrust olent means allowed Ecarma and Jainab Later that year, when Ecarma was se- The Challenge of Peace in legations that he violated the rights of Government headquarters, she insisted and anger that give rise to conflict would to establish a partnership that served well lected for the second cohort of Bridg- ulu farmers in the area by fingerprinting S on accompanying the team to the front likely remain. Moreover, neither peace their common goal. Before and through- ing Leadership Fellows, he took advan- them without their consent. He, in lines to gauge its effects on the people and nor development could be achieved out his BL fellowship, Ecarma engaged in tage of the opportunity to strengthen Jainab’s engagement with UNICEF turn, was surprised by her challenge– the community. “I couldn’t see the actual without addressing the concerns of the his quest to change people’s perception of his efforts in Patikul and, again, Jainab ended in 1993. In 1994, she began “She said I was ‘a party to conflict.’ effects of the program on the communi- community as a whole. Sulu, accord- the military. He promoted actual devel- played an important role. She became working as tourism officer for the Pro- Me, a party to conflict? How can I be ties from the office. How would I know if ing to Jainab, is still a very conservative opment on the ground by using a com- a member of his core group as the new vincial Government, but her concern 3 a party to conflict? I’m the one want- what they were telling me—that the pro- place. The barangay officials are not bination of barangay consultations and executive director of Sulu’s Area Co- for the impoverished communities of ing to solve the conflict,” he recalled. gram was successful because of this, this, always the ones with the most power civil-military operations, such as medical ordinating Council (ACC) and, along Sulu remained. She looked at tourism and this indicator—really meant that life or the best insight in the communities. missions and livelihood programs. Jain- with Pa Sali Ahalul, another respected as a source of income and pride for the However, because they were willing to had improved for the people? I wanted to That is why it was important to talk to ab, for her part, took on the key function CSO leader in the area, continued to people. However, as the security situ- listen to each other, they were able to set- validate and to understand, so I began go- informal leaders as well, and to verify of preparing the communities for these help Ecarma in engaging the commu- ation in the area worsened with the tle the issue. Jainab explained to Ecarma ing with them.” findings with the rest of the people in- activities that allowed Ecarma and his nities for projectssuch as the Cow for Sipadan hostage crisis, marketing the that because of the experiences of the 4 volved in the issue. As she put it, “Peace Marines to deepen their engagement and Peace Program. province as vacation destination be- people with soldiers who abused their As she returned to the practice of op- needs a holistic approach”. maximize the effects of their efforts. She came less and less viable.1 Although rights, they had singled him out as the facilitated many of the consultative meet- Her groundwork with the communi- cause of the discord in the area. But it was ings herself, translating from Tagalog to ties helped Ecarma solidify ties within exactly what Ecarma wanted to address– 1 On May 3, 2000, members of the Abu Sayyaf Group (ASG) occupied Sipadan Island, a renowned Malaysian dive resort and abducted 21 hostages, includ- Tausug, the local language, to ensure ef- the Patikul Team Core Group, a coor- ing 10 foreign tourists and 11 resort workers. The hostages were taken to an ASG base in Jolo, Sulu. Two Muslim Malaysians were released early, but the ASG made he did not want the people to look at the fective communication between the lo- dinating body composed of the mayor various demands for the release of others, including the liberation of 1993 World Trade Centre bomber Ramzi Yousef and a ransom worth $2.4 million. In July that military as made up of soldiers who only same year, a Filipino television evangelist and 12 of his crew offered their help and went as mediators for the relief of other hostages, along with 3 French television cals and the soldiers. and representatives from the police, crew members and a German journalist. All were taken captive. Most hostages were released between August to September 2000, partly thanks to mediation by serve the Christians or the powerful peo- line agencies, academe, and NGOs. Libyan leader Muammar Gaddafi and an offer of $25 million in “development aid”. ASG members conducted a second raid on Pandanan, an island near Sipadan, on ple in Manila, he wanted them to see the September 10 and seized three more Malaysians. The Philippine military launched a major offensive on September 16, 2000, rescuing all remaining hostages except She used what she had learned in her The team was conceptualized to pro- Filipino dive instructor Roland Ullah. He was eventually freed in 2003, after three years of being hostaged. military as the people’s soldiers.

3 Village. 2 The Action for Conflict Transformation (ACT) for Peace Programme is the fourth and final phase of the Government of the Philippines–United Nations Multi-Donor Programme (GoP-UNMDP) that started in 1997. The Programme represents the commitment of the two parties to peace and development in southern 4 The Cows for Peace program was a need-based cow dispersal program undertaken by the 3rd Marine Brigade under the leadership of Col. Ecarma and in Philippines. partnership with Mr. Andy da Rossi of 3P Foundation.

20 21 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories mote dialogue, collaboration, and ac- been built into the system Patikul’s LGU quired bridging work and Jainab’s par- of development planning and budget- On February 2009, Jainab and her funds for their planning and budget- countability among the government through an Executive Order. More tell- ticular skills. In early December 2008, ing workshops for barangays–exactly team organized a Bridging Leadership ing workshops and to do what they offices and other organizations for ingly, it has continued to function in Ecarma received feedback that fund- what they wanted to do. Unfortunate- Seminar for Patikul’s barangay cap- could to make sure that the stake- peace, security, education, livelihood, his absence, holding consultations and ing agencies like the Asian Develop- ly, by the time they found out about tains in Zamboanga City. Not all the holders they needed to be involved– and health in the area. meetings among team members and ment Bank and USAID rarely provided the project, it had already ended and Captains were able to attend so they barangay officials, other community working towards making Patikul a more grants to projects of local government TAF had moved on to new priorities. organized a second one in March. leaders and ordinary citizens–attend In March 2008, Ecarma proposed a stra- peaceful and progressive place. units without first seeing their Ba- They had received feedback earlier the activities. tegic plan for the group based on feed- rangay Development Plans (BDPs) and Jainab narrated, “We asked Mayor that the captains remained divided back from previous consultations with Because of this experience, Jainab sent Annual Investment Plans. Technically, Kabir to write a letter to Dr. Steven along political lines, and Jainab knew Just as Jainab and Ecarma had finalized the different communities of Patikul. in her own application for the third co- barangays in Patikul had these, but the Rood, the country representative of that getting everyone on the same plans with MIRD and the Barangays When members of the team questioned hort of Bridging Leadership Fellows. quality of the materials left much to be the Foundation, explaining what we page and willing to cooperate were vi- Captains, they received news that TAF a number of his points, the citizens She began the program in late Octo- desired. Most of them were cut-and- wanted to do and asking for their sup- tal. In her words, had released the project funds to the themselves defended Ecarma’s ideas. ber 2008 as the executive director of paste versions of another NGO’s BDP port. Fortunately, Dr. Rood agreed.” Bangsamoro Women Foundation for Sulu’s Area Coordinating Council. She and budget templates, and it was com- “If we really wanted peace, we Peace and Development (BMWFPD), When Ecarma first began his Fel- hoped that the systematic approach to mon practice for the barangay captains However, this brought with it a second couldn’t stop with the Patikul a Cotabato-based NGO that TAF had lowship, Jainab was fearful that their addressing social problems in multi- and their staff to prepare them without set of problems. TAF was only able to team. Organizing the officials worked with before but that the team efforts would be reduced to just an- stakeholder contexts of the BL frame- any input from the people. It was thus release P300,000 for the project. That at the municipal level would not had no previous encounter. BMWFPD other externally driven project like work would improve her effectiveness unlikely that aid institutions would meant that they had what they needed make the change we wanted sus- will work with them instead of MIRD. the failed BL roadmap prepared for in her position. It required her to man- find them acceptable. for only ten barangays, or one-third of tainable. Because of the work I’d They were disappointed. In the first Sulu in 2006. As the Patikul team core age different relationships and interests the required cost for all 30. The Mind- done with communities previ- place, it was MIRD that prepared with group began coming together, how- on a daily basis to ensure that everyone So, Jainab’s new role in the team and anao Integrated Resource Develop- ously, I knew we needed to bring them from the start for the planning ever, she reassessed her opinion of the was headed towards the same goal–a her main project for her fellowship ment (MIRD), a Sulu-based NGO that the Patikul team’s transformation and budgeting process. They also had framework. Although she had previ- peaceful and prosperous Sulu. was settled. She would be respon- they had been consulting with, gave to the barangays so everyone confidence in the quality of MIRD’s ously convened different stakeholders, sible for helping each of Patikul’s 30 them a way out.5 After witnessing Jain- could embrace what was going work based on previous partnerships asked them to analyze situations to- Unfortunately, almost as soon as she barangays create their own three-year ab and Ecarma discussing how they on. The change needed to reach with them. The team was not sure if gether, identify a vision that the group began her fellowship, she was relieved development plans and annual budg- could further reduce project costs to fit the frontlines, the communities.” BMWFPD whom TAF had selected shared, and act collectively, the system of her position in the ACC. The Gov- ets based on feedback from commu- their budget, MIRD’s Executive Direc- was capable of navigating Sulu’s unique of ordering them in a particular man- ernor of Sulu forbade her from leav- nity members. tor offered the services of their facili- The seminars gave the barangay cap- context. Neither did they know if it ner and framing each activity so that ing her post at the time because of the tators for free. The team was excited. tains the space and framework they would be willing to waive the profes- they encourage collaboration among volatile situation in the area, and when The Barangay They knew the quality of MIRD’s work, needed to talk, to identify with each sional fees of its facilitators so they stakeholders were new to her and he found out that she had ignored his and not having to pay professional fees other’s experiences, to analyze a prob- could conduct the planning and budg- proved to be quite useful. Convening instructions, he immediately replaced Participatory Planning and for the planning and budgeting work- lem that was bigger than any one of eting program in all 30 barangays of the Patikul team core group, for ex- her. According to Jainab, “Not attend- Budgeting Workshops shops cut their costs by almost half. them, and to figure out their role in Patikul. Ecarma recalled, ample, and asking them to assess the ing the first workshop then would have addressing their common goal: bring- situation in the municipal level made meant giving up my spot in the BL Fel- From the start, preparing for the Ba- MIRD had a condition for volunteer- ing peace and development to their “I was angry – but she was angri- it easier to convince them to work to- lows Program. The situation in Sulu rangay Participatory Planning and ing their help: the barangay captains communities. It also gave the mayor er. But if we both just stayed an- gether more closely with each other. In had also begun to stabilize by then, so I Budgeting Workshops (BPPBWs) was would have to contribute to the budget a chance to talk to the barangay cap- gry then nothing would happen, turn, allowing each member to choose thought it was okay for me to go.” a challenge. by covering food and transportation tains in a setting where people were so I calmed down and mediated. to commit himself to the Team’s vision expenses for their workshops. This more open and willing to work with We met with a representative of thereby strengthening the dedication Even as she struggled to overcome First, they needed to locate funding fitted in seamlessly with the Team’s each other and explain to them the Bangsamoro Women and ex- of each member to the work. They her feelings of shock and hurt, Jainab for the project. The estimated cost of strategy. Asking the barangays to in- value of the planning and budgeting. plained to her our side. Even found it easier to work together with knew that she needed to push through transportation, materials, professional vest their own resources in the project though we only had enough their shared analysis of the challeng- with the fellowship. She still had her fees, meals, and other expenses for would give them greater ownership of After the seminars, the barangay cap- money for ten barangays, we es Patikul faced and their newfound commitment to the people of Patikul each barangay amounted to approxi- the process and its outcome and ensure tains were excited and cooperative. needed to do all 30. And we openness to one another. and this did not change just because mately PhP 30,000. Multiplied by 30, that the change is more likely to last. All of them agreed to give counterpart wanted the planning and budg- her own situation had changed. the total project cost was PhP 900,000. In September 2008, Ecarma was pro- Research led them to Transparent Ac- moted to Deputy Commandant of the True enough, when she returned home countable Governance program of 5 Mindanao Integrated Resource Development, Inc. (MIRD) is a registered non-governmental, non-profit organization dedicated to improving the quality Philippine Marines and was reassigned after the first workshop, it did not take The Asia Foundation (TAF), which of life of people in the poorest parts of the Mindanao by providing assistance that is tailored specifically to their needs. MIRD is known for the integration of area- gave out grants for the proper conduct focused development with environmental and natural resource management and local governance–all key factors in bringing about empowerment and sustainable to Luzon. But the team had already long for situations to emerge that re- development in the rural sector. Founded in 2000, MIRD has implemented numerous projects in ARMM.

22 23 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

eting done following a particular One month later, they began making list of the projects and interventions cember. The municipal government the barangay officials. Because of the have the power, authority, influence and process to make sure that we got the rounds for the planning and budg- they believed the community needed is now in the process of formulating program, they are now more willing resources. But I am proud to say that I the results we wanted.” eting workshops. The technical team and ranked them by voting. its own Municipal Development Plan to deal with each other directly when am not a Mayor or Local Chief Execu- was divided into two groups that ran the based on the completed BDPs, while discussing problems or opportunities tive, but together with the Patikul team Luckily, the Bangsamoro Women workshops simultaneously,s previously Following this data gathering stage, the Patikul team members have re- for old and new ventures. and all the people we worked with in agreed to split the funds and the work. agreedon. The Bangsamoro Women the workshop participants got down started their efforts to source funding making a roadmap for Patikul, Patikul They would facilitate the planning and took responsibility of ten barangays and to planning and budgeting. They be- and projects that are in line with the Like in the BL Seminars for the barangay is no longer a place feared even by Tau- budgeting process for ten of Patikul’s MIRD of 20 barangays. Jainab shuttled gan discussing the current conditions needs of the communities. captains of Patikul, the BPPBWs gave sugs, Patikul is a place to love, to enjoy.” barangays and MIRD would handle the back and forth to monitor the process in their communities. Then they con- ordinary community members and lo- other 20. TAF’s grant would be spread and make sure that the workshops were structed their shared practical visions The consultative method used for the cal government officials alike a place to Moreover, the process has helped en- equally among the barangays and the being carried out as planned–that is, in for their barangays in response to these BPPBWs was not only meant to lend share their experiences and validate their rich her perspective on success and technical team (composed of Mu- a transparent and consultative manner conditions, including specific strategies credibility to the resulting BDPs and impressions. It also gave them a platform the work that she still has to do. “Or- nicipal Planners and staff from MIRD that encouraged the people to articulate for turning their vision into reality in budgets, it was also meant to help to follow up on their concerns or to make dinary farmers being able to sleep and the Bangsamoro Women Founda- their concerns and showed them that the next three years. These were fur- the people find their voice and moti- suggestions, both to barangay and to mu- soundly at night in their homes or tion) that would facilitate the barangay their involvement in community gov- ther divided into five groups–public vate them to use it. Most of them are nicipal officials. Together, this has led to shanties are measures of success and workshops. Each team would attend its ernance was worthwhile. administrations, the local economy, in- farmers and fisher folks who had not improved relationships among the vari- peace. A family having a sufficient own training and planning workshop frastructure, socio-cultural status, and finished high school, and many felt ous stakeholders and a greater sense of supply of cassava on the table is al- funded by the municipal government Each BPPBW ran for five days. They the environment–before translating it insecure in the company of those who hope in the community. As a barangay ready what the people call peace.” before beginning their work with the began with explanations about the BDP, into specific activities and programs were better educated or had more re- kagawad7 said to his audience during individual barangays. the barangay budget, the importance of for each year. Finally, they went on in sources. Preparing the resource maps the ratification of their BDP, “Let’s not be And for her, the very fact that the ba- getting the entire community contrib- identifying and prioritizing specific ac- of their respective barangays and com- discouraged by the slow-moving devel- rangay captains and other community Finally, in June 2009, they were able to utes in the creation of a budget, and an tivities for the following year, utilizing pleting their product sale flow charts opment of our barangay. Instead, let us leaders that they worked with in the hold the weeklong training for the tech- overview of the workshop proceedings. the barangays’ 20% Internal Revenue were activities that empowered them work together for the best.” BPPBW are now following up on pro- nical team which would facilitate the Allotment (IRA) Development Funds because the information came from jects and priorities identified during planning and budgeting workshops. Then, the consultations followed. to cover their corresponding costs. them and everyone listened to them. Jainab, too, learned her own lessons the planning process is most encour- This group was composed of ten indi- Workshop participants were asked to The drafted BDPs were then presented from the process. With the comple- aging. The conflict in Sulu has dam- viduals from the Municipal Planning appraise the condition of their com- to the community and ratified in a Ba- On the other hand, the BPPBWs pro- tion of the planning and budgeting aged more than just people’s homes Team, MIRD, Bangsamoro Women, and munities, especially in terms of prob- rangay Assembly. vided the much-needed training and workshops, despite the absence of and families. It has affected the way even a representative from the military lems and opportunities. They drew input to the barangay officials and authority that her position as ACC they see themselves and relate to one stationed in the area. They went over the resource maps, social census maps, ser- The Process as Much as allowed the rest of the community Executive Director had lent her, she another. Consequently, as impor- details of the activities, the methods, the vices maps, and transect maps for their members to understand and appreci- gained a better understanding of the tant as policies at the provincial and the utput schedule, and the goals of the barangay areas. They also prepared diagrams O ate their work. Moreover, the entire networks that her own work and years national levels are in addressing the workshops. They also familiarized them- identifying the government agencies, exercise helped restore the mutual of engagement with the people of Sulu discord and underdevelopment in the selves with the stakeholders who would CSOs and other groups in their com- The final set of BDPs and barangay trust between the municipal heads had given her. She said, area, initiatives at the barangay and be included in each stage of the process– munities, and whether or not they were budgets were completed and ratified of various line agencies like the De- municipal levels, particularly those the local officials, the imam, hilot, rep- functional, as well as charts tracking in late September 2009. Copies were partment of Agriculture, the Depart- “Sometimes, I think about what things that are aligned with a broader vision resentatives from religious sectors, the the seasonal availability of their prod- given to the Mayor of Patikul, who ment of Health, and the Department would have been like if I had been a to restore relationships and return the youth, the women, and the farmers and/ ucts and where they were being sold for reviewed them before presenting the of Social Welfare and Development Mayor during my fellowship. People people’s ability to address their own or fisherfolk in the barangay.6 higher prices. Finally, they prepared a completed plans to the barangay cap- (all members of the Patikul team) and would have engaged with me because I needs, are just as important. tains and their communities in De-

6 The term ‘imam’ refers to a leader in Islam, often of a mosque and/or a community. He is the one who leads the prayer during Islamic gatherings and the 7 Village legislator. one that the community turns to when they have questions about Islam. The term ‘hilot’ ambiguously refers to both the midwife and the chiropractic practitioner in the community. It has deep roots in the Philippines’ rural areas where practitioners use touch therapy as an inexpensive alternative to medicine.

24 25 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

Lanao del Norte Governor Mohamad Khalid Quibranza Dimapo- time, Dimaporo placed in the Na- Before becoming a governor, Dimaporo penetrate. “I learned how to do collabo- ro’s leadership journey is characterized by a struggle between family tional Dean’s List of the United States. has held a number of positions in compa- rative decision making. I learned to listen Dimaporo was a competitive student nies and foundations, most of which are to my people’s suggestions and on how legacy and his personal goals, between confidence in his skills and who benchmarked his performance owned or affiliated with his family. From they view the problems,” says Dimaporo. trust in collaboration with other persons in the community beyond by utilizing international standards March 2005 to present, he has been pres- After lobbying for additional funds, Di- his family. The Dimaporos maintain a stronghold in the province, set by his professors and fellow stu- ident of two companies, A&A Ranches maporo and his team were able to raise and as a son he was expected to follow the family legacy. However, dents. He succeeded in meeting his and Muslim Diversified Agriculture, Inc. more than PhP 50 million for the bank’s goals without much help from others. Furthermore, he is the vice-president of recovery and eventual flourishing. Gov. Dimaporo does not plan to stay in politics for a long time; he the Dairy Division of Lanao Foundation, views his political career as “temporary, just like everything else in During this time, Dimaporo wanted to Inc. since April 2005, which has provided His involvement in these organizations the world”. Because of this, he wants to create his own legacy while teach in the United States and to even- him ample opportunities to visit rural enabled him to have a ready network for tually settle there with his wife and chil- areas and relate to the locals. Dimaporo partnerships in his directives as gover- serving as governor of the province of Lanao del Norte. dren. However, his father called him has also been a board member of Land- nor. Dimaporo observes, though, that back to the Philippines for the 2007 elec- O-Lakes Foundation since January 2007. the Philippine management set-up is tions, telling him that, “it is his time to He is currently the executive vice-presi- different from what he was accustomed He says, “I don’t want to be too com- Norte. The Dimaporos at that time op- carry the torch of the family legacy”. He dent of CONFED Mindanao and chair- to when he was in the US. “It’s slower mitted unlike members of other polit- erated the Baracudas, the Muslim pri- was hesitant at first, but because of his person of the Infrastructure Committee here than in the States. It’s very hard to ical dynasties in the Philippines. The vate army based in Lanao del Norte. deep respect for his father, he returned of the Regional Development Council. keep deadlines. For example, in my ex- legacy of my parents, for me, is a bur- The private army clashed with the to Lanao del Norte to run for governor. perience in the rural area with the farm- den. I just want to fix the province so Ilagas, a group of Christian vigilantes. From June 2005 to March 2007, he was ers, I always have to follow-up on them I can leave.” As he seeks to address his The marriage of Rep. Abdullah to Im- Governor Mohamad Running for governor was an eye-opener chairman of the Government Service – regularly, daily. It took me around a chosen societal divide, he realizes that elda Quibranza, a Christian woman for Dimaporo. He relates that part of the Insurance System (GSIS) Family Sav- year to adjust,” he says. However, Di- Khalid Dimaporo he has opened Pandora’s box. from the political clan of the Quibran- reason in his decision to run in politics ings Bank. He entered the organization, maporo did not lose the work discipline Lanao del Norte zas, symbolized the unity of Muslim was the confidence that winning would in what he refers to as its “lowest point”, he learned from abroad and used this in and Christian communities and the Leadership Capital be easy. In 2007, his mother ran for con- while it was suffering from bankruptcy bridging and leading the peoples of La- end of the conflicts that plagued the gress and he for governor. But it turned that hindered some of its functions, since nao del Norte to a new working system. province for decades. From his father, Gov. Khalid Dimaporo is a descendant out that getting the posts for both mother the bank was dependent on the finances Gov. Khalid said he learned the value of the Dimaporo and Quibranza clans and son was not that easy. His mother provided by GSIS every year. Dimaporo AREA AND DIVIDE of keeping peace to enable further de- of Lanao del Norte, both are strong lost in her bid and the support that was was confident that he could contribute velopment, and from his mother he Lanao del Norte is located in the political dynasties. His grandfather, promised him was not as strong as he something to the organization, primarily learned the value of compassion. Northern Minadano region and is Sultan Mohamad Ali Dimaporo, expected. Since he was elected by a slim because of his background in econom- divided into 22 municipalities. Like rose from the local royalty to “being margin, he has made it a point to visit all ics. But this was not enough to build a Despite his deep regard for his fam- most of the provinces in Mindanao, a provincial governor, congressman, barangays (local political units) in Lanao successful work atmosphere as there are ily legacy and history, Dimaporo did Lanao del Norte is home to a diverse university president, advisor to for- del Norte – a salient move to win back the informal organizations within the bu- not bank on the influence of his family group of people–Maranaos, Hi- mer President Ferdinand Marcos, and trust of the local leaders and the people. reaucracy that was difficult for him to operator of the most powerful politi- to come up with his own list of per- gaunons, and Cebuanos. The popula- 1 sonal achievements as a student and tion is predominantly Christian. cal machinery in Mindanao” . From LANAO DEL NORTE him, Khalid said he learned the value businessman in the United States. He acquired his BA in International Eco- of loyalty and friendship. His father, Capital Municipality of Tubod The province is one of the top gainers Congressman Abdullah Dimaporo, nomics and MA in Development Eco- in terms of Human Development Index Population (2007) 538,283 rd became active in politics during the nomics from the University of Cali- ranking in 2006. It rose from rank 33 height of Martial Law in the 1970s and fornia. He has started taking his PhD Human Development Index (2006) 0.604 in the country in 2003 to 23rd in 2006. in Agricultural Economics at Texas Its life expectancy at birth score has also This write-up was written became the main actor in unifying Poverty Incidence among population (2006) 52.2% by Marcia Czarina Corazon Muslims and Christians in Lanao del A&M University in 2004; during this increased: from 64.1 in 2003 to 65.2 in Medina under the supervision Life expectancy at birth, in years (2006) 65.2 2006 (See Table: Lanao del Norte2). of Mr. Philip Dy and Prof. Nieves Confesor of the AIM 1 From “Mohamad Ali Dimaporo: A Modern Maranao Datu” by G. Carter Bentley, An Anarchy 1 The change in rankings is from the Philippine Human Development Report 2008/2009. (Retrieved from http://hdn.org.ph/wp-content/uploads/2009/05/ Team Energy Center for of Families: State and Family in the Philippines (1994), Alfred W. McCoy (ed), Ateneo de Manila University chapter-3-provinces-and-human-development.pdf). Other data are from the National Statistical Coordination Board (accessed at http://www.nscb.gov.ph/ru10/stat- Bridging Leadership. Press. The article documents the rise of Ali Dimaporo and the decisions and conflicts he underwent through- watch/statwatch3Q2009_p.pdf) out his political career.

26 27 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

Compared to other provinces in the order to start negotiations. However, compromised by the decisions made the healthcare issue is geared towards Dimaporo’s mother, who was governor “Nag-adjust din kami, pero na- area, Lanao del Norte has kept a rela- he had no connections of his own; all by the members of the military. Ac- enabling the local government to de- then, launched a PhilHealth program in kikita namin his efforts to really tively peaceful environment for the of his available connections were from cording to him there are some things liver tangible services to the people. the province in which the LGU paid for blend in with all of us. Una nag- last decade. However, the province his father’s network. He was not able to that are “beyond [his] control”, but it He said, the premiums of the citizens. aral sya ng Bisaya, tapos kahit still experiences some violent out- “call the shots” to efficiently deal with did not mean that he would let such anong mangyari pag may com- breaks caused by the conflicts in near- the hostage-taking. A crisis committee, an incident happen to him again, or to “Prioritizing health quite fell on my lap. However, the PhilHealth program under mitments kami sa mga barangay, by provinces. Dimaporo dealt with comprised of the police force, the mili- any stakeholder he works with. In 2007, when I came in as governor, Gov. Quibranza did not flourish because kahit gaano kalayo, pupunta at a number of them during his term, tary, and his father’s connections, was there was absolutely no talk about health. the hospitals in Lanao del Norte were pupunta sya. (We also adjusted, which he described as “challenging created to undertake the negotiations. Dimaporo’s realizations on these inci- Everything was about peace. But health not prepared to provide services within but we saw his efforts to really leadership experiences”. In August 2008, few weeks after the ne- dents reflect the conflict he had to face receives the highest budget every year... the PhilHealth program. Most hospitals blend in with us. He learned the gotiation, Go was released unharmed early on in his political career. His edu- And when I talk in the barangays [in were not PhilHealth-accredited, which Visayan language, and no mat- His first experience in conflict man- and without ransom. Even with the cation and experience in the private Lanao del Norte], when I mention that meant they lacked equipment, man- ter what happens, when we have agement happened in 2007 when vio- successful release of the hostage, Di- sector indicate that he is personally able we are going to work on health services, power, supplies, and even medicines to commitments to go to villages, lence broke out in Lumbac, Kolam- maporo was not satisfied with the out- to solve problems, and yet as gover- that’s when the people really start clap- accommodate all the PhilHealth mem- even if the places are so far, he bogan due to a land dispute between come. He realized that if he wants to nor, these were not enough. Dimaporo ping. And I realized that, health is some- bers seeking health services. will still go.) He has so much Muslims and Christians. The conflict make things happen, he has build his learned that he could not achieve his thing they can really identify as a need.” energy for his work. And that escalated when a lawless armed group own network and relationships with goals for the province on his own, and When Dimaporo assumed the gover- makes us feel we are working ambushed some members of the po- partners whom he can depend on. that he would need to rally and keep the As the need was identified, Dimaporo norship in 2007, he aimed to revive and with a really reliable leader.” lice force. Dimaporo initiated a task support of able actors to ensure the im- planned and started the initial stages of innovate on the health care program force involving local leaders and the At the height of the talks on the Mem- pact of the solutions he wished to enact. the healthcare reform program for La- by working with his core group to re- To reform the provincial health care local government to bring back peace orandum of Agreement on the Ances- He learned to value the contributions nao del Norte. It is at this stage that he form the health system in the province. system, Dimaporo and his core group in the place. He aimed to mediate at tral Domain (MOA-AD), in which the of each stakeholder, and in the process, got accepted for the Asian Institute of The core group was composed of his conducted a study tour to gain in- the beginning, but when the conflict national government drafted a treaty also guarantee that he will be consulted Management Bridging Leadership (BL) immediate staff, some of which have sights from other health care models, worsened, the mayor of Kolambogan with representatives of the Moro Is- regarding major decisions. At that point, Fellowship program4 in October 2008. worked under his father and mother and found out that Bukidnon enforc- had to ask for his intervention, and lamic Liberation (MILF)3, Lanao del Dimaporo was experiencing a crucial during their respective terms, and key es a health care system that generates eventually, accountability was given to Norte suffered from bombings from turning point in his leadership journey. Health care programs were already in officials in the provincial health sec- income. The research-study tour on the provincial government. Dimaporo MILF forces. Earlier, MILF groups at- From a student-teacher-businessman, existence in Lanao del Norte even before tors. Although he already knew the the Bukidnon model also became one found himself trying to overcome the tacked Iligan City, but when the mili- he was becoming a public servant. Dimaporo’s term as governor. In 2004, people who composed the core group, of the activities wherein Dimaporo impression that since he is Muslim, he tary pulled out from the conflict areas, the national government launched “Plan he said he had to further build on their and his core group had a chance to would be biased for the Muslim con- the MILF furthered their attacks in Venturing into Health Five Million”, which aimed to give health relationships and because they had lit- ‘bond’ as a team. testers. Hence, he sought the involve- the province. Dimaporo was quick to insurance to five million people all over tle chance to work on health as a team ment of other stakeholders for the organize a committee to address the After acknowledging the importance the country through the PhilHealth sys- before, they had to “learn together”. Dimaporo also learned that the pro- 5 talks. Although the land conflict itself situation, and although eventually the of prioritizing peace and order in tem . For this program, Lanao del Norte vincial government of Bukidnon is still unresolved, Dimaporo realized violent incidences subsided, the expe- the area and acting on the issues that was assigned 500,000 slots distributed According to some of the core group sponsors PhilHealth programs and the importance of the multi-stake- rience was definitive for him in real- have to do with this aspect, Dimaporo to selected residents of the province. members, they had to adjust to Dimapo- was able to distribute PhP 100,000 to holder process from this experience. izing the value of consultation with turned his attention to improving the However, the program was not renewed ro because, “He has a different working its staff from the revenues of accred- the different stakeholders. Dimaporo healthcare system of Lanao del Norte in the following year, and people began style compared to his father.” He was, ited hospitals in the province. Phil- The kidnapping of Owen Go in July said that the military did not coordi- He saw this as one of the ways for de- to lose their PhilHealth membership. they say, “more business-like” in his ap- Health membership is required for all 2008 allowed Dimaporo to realize his nate with the local government unit velopment to be included in the peace PhilHealth then marketed directly to proach towards work. One of the core the residents of the province, and the limitations as governor. At the height (LGU) before they left the conflict equation. He believes that peace can- LGUs in order to continue the program. group members said, private sector makes it available to the of the incident, Dimaporo sought for areas, hence he had to respond with- not be achieved without a change in support of influential people who had out ample preparation. And as a ma- people’s quality of life. This focus on 4 The program covers a one-and-a-half-year of intensive training, mentoring, and application that aims to increase the capacity of selected leaders in ad- relationships with the kidnappers in jor stakeholder, he felt that they were dressing a specific societal divide they identified. Fellows learn to improve their ability to identify and understand a problem and its complexity and develop a col- laborative response to address the problems. The selected leaders are then able to induce change within the context of their involvement.

3 The Moro Islamic Liberation Front (MILF) is one of the two liberation movements for the Bangsamoro people in Mindanao. The first group is the Moro National Liberation Front (MNLF), headed by Nur Misuari, emerged during the height of the Martial Law in the 1970s. When MNLF agreed to negotiations with 5 PhilHealth describes itself as “a premier government corporation that ensures sustainable, affordable, and progressive social health insurance which the Philippine government on the formation of the Autonomous Region of Muslim Mindanao (ARMM) among other political differences, Salamat Hashim and his endeavours to influence the delivery of accessible quality health care for all Filipinos”. Its mission states that, “As a financial intermediary, PhilHealth shall continu- group within the MNLF formed a separate entity, now known as the MILF. In 2008, a Memorandum of Agreement on Ancestral Domains (MOA-AD) which sought ously evolve a sustainable national health insurance program that shall: (a) Lead towards universal coverage, (b) Ensure better benefits for its members at affordable to grant land ownership and independence to local groups in Mindanao was declared null and unconstitutional by the Supreme Court In December 2009, the MILF premiums, (c) Establish close coordination with its clients through a strong partnership with all stakeholders, and (d) Provide effective internal information and resumed peace talks with the Philippine government in Kuala Lumpur, Malaysia. management systems to influence the delivery of quality health care services”. More information can be seen at http://www.philhealth.gov.ph/.

28 29 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

poor. He was then able to identify a Dimaporo and his team then initiated marketing of the program. Every year, In the consultation during the summit, Aside from tackling these issues, the ber of beneficiaries in the province. In model to emulate for Lanao del Norte. a review of the health system in Lanao the program will induce increases in Dimaporo think that the stakehold- health summit was successful in se- 2007, there were 52,024 beneficiaries; del Norte. They found out that their premium, but the capitation remains ers progressed to the levels of dialogue. curing the commitments of the stake- there were 70,312 in 2008, and 77,148 However, Dimaporo’s core group ob- hospitals lacked facilities, equipment, the same. “In ten years, the subsidies First, it was an opportunity for all the holders. Doctors and religious groups in 2009. The LGU is moving towards served that the Bukidnon model cre- a steady supply of medicines, and that will go lower. The challenge is for stakeholders to synchronize their in- volunteered to partner with the pro- universal sponsorship of the indi- ated an unintended competition with their doctors are migrating to Manila the project to be sustainable and in- dividual health reform agenda and ac- vincial government in conducting gents, with an “open enrollment” pol- government health programs, primar- and other countries to receive higher dependent,” Dimaporo explains. He tivities with each other to increase the medical missions (e.g., circumcisions, icy. This means that even if the heads ily the Rural Health Units (RHUs), be- salary. The review also looked at the constantly urges the municipalities to impact of health services under the medical, and dental check-ups) in far- of municipalities or barangays are not cause all their operations are under the strengths and weaknesses of the ear- earn more with the capitation provid- Indigency Program. Second, impres- flung areas, with a counterpart in the affiliated with Dimaporo’s political provincial government. RHUs, which lier health programs in the province. ed by the provincial government. Also sions and expectations were managed. form of medicines from the LGU. A party, the residents of those areas can are managed by the local Department The study tour and their review of the in 2009, a trust fund was opened for For instance, Dimaporo’s core group system for Volunteer Health Work- still avail of the program. of Health, compete with Philhealth for health system enabled them to proceed further financial stability and develop- noted that some groups in the sum- ers (VHWs) was also established. The funding, equipment, logistical support, with a strategy for healthcare reform. ment of the program. mit thought of the Indigency Program health workers are volunteers from the The residents are required to secure and attention from the provincial gov- as a way for the LGU to earn their fa- barangays who make sure that every all the necessary documents for their ernment. Because of this, in the Lanao As for its strategy, the provincial gov- vor, or “magpa-pogi points lang (just to resident has the required documents PhilHealth applications. According to del Norte model, the Provincial Health ernment spent PhP30 million in 2008 BL Approaches To The gain public approval)”, but did not turn (e.g., birth and marriage certificates) some barangay volunteer health work- Officer (PHO) became part of the core for Maintenance and Other Operat- their attention to the actual benefits of so they can avail of the PIHP benefits. ers (VHWs), securing documents is a ealth are ndigency group, thus aligning the activities of the ing Expenses (MOOE) to improve the H C I having PhilHealth membership. An- difficult because not all residents have a local DOH with that of the provincial hospitals in the province. This was to Program other issue that surfaced was the un- The health summit was a success, but birth certificate. This usually happens in health programs. Dimaporo says he prepare the hospitals in securing ac- easy competition between private and Dimaporo likened it to “opening Pan- far-flung barangays where most births was careful that the DOH units in the creditation from PhilHealth at the According to Dimaporo, the most im- provincial hospitals. Doctors and staff dora’s box”. He said, are attended to by the local healers (hi- province would still be able to fulfill soonest time, allowing hospitals with- portant insight he acquired from Bridg- from private hospitals would discourage lot) and the residents do not understand their functions, and also, “be able to in Lanao del Norte itself to accommo- ing Leadership is keeping the multi- patients from going to provincial hospi- “When I did my VMO [vision, the need for a birth certificate or do not work smoothly with all the health pro- date indigent patients. The remainder stakeholder process active in all aspects tals because of the lack of medicines and mission, objectives], there were have the means to acquire it, since most grams of the province”. of the funds were spent for the Phil- of planning and decision-making. equipment, while those from provincial things I didn’t want to handle. But of them rarely leave the town through- Health applications and memberships hospitals would tell patients that if they in the summit, issues like malnu- out their lives. In other cases, couples After their study tour, a health sys- of the residents of the province, espe- One of the first steps that he undertook do not go to public hospitals, their Phil- trition came out, which is a divide build families without a legal marriage tem business plan was made, with the cially those who are unemployed or was to organize a Health Summit in Health cards will be forfeited. in itself. Malnutrition is related to ceremony; as a result,their children, program designed to become an eco- self-employed. With the support of February 2009. It was the first time that population management, poverty, who are born without birth certificates, nomic enterprise6 to maximize profits, the municipal governments and the the provincial government went on a This conflict between private and pub- livelihood and employment, infra- cannot be claimed by parents as their le- and as Dimaporo says, “to protect the barangay units, the provincial govern- dialogue and consulted members of the lic hospitals was resolved in the health structure, among others. I want to gal dependents. program from political transitions”. In ment distributed PhilHealth cards to private sector and civil society groups, summit. Since the citizens can avail solve all the problems but some of Philippine politics, when a project be- residents as proof of their enrollment members of the academe, and other non- of their PhilHealth claims in both the problems cited are divides on In such cases, stakeholders from the comes too affiliated with a politician, in the program, which they can use government organizations (NGOs). It kinds of hospitals, it was explained their own.” provincial and municipal govern- and if that politician does not get re- whenever they need financial support was a precedent for collaboration, and that there should not be competi- ments had to innovate to help the in- elected, the successor usually ceases the in cases of hospitalization and other Dimaporo looks at his role as follows, tion. The indigents can go to the pro- Whereas Dimaporo recognizes that he digents secure their documents. Mass LGU’s support for it. This new design health-related emergencies. vincial hospitals, but since not all of cannot possibly solve all identified di- weddings are held to ‘formalize’ the they implemented makes the health “As local chief executive, it is impor- them have the equipment and enough vides during his term, the realizations cohabitation of couples without ex- care program an economic enterprise In 2009, the initial PhP 30 million for tant that I set the over-all strategy of number of beds to accommodate all made during the health summit chal- penses on their part so that marriage enabling it to be self-sufficient and MOOE had a return of PhP 33 mil- achieving an objective to harmonize patients, there would inevitably be a lenged him and his core group to inno- certificates can be issued to them. hindering political motivations from lion in the form of PhilHealth claims the actions of all departments involved good number of patients who would vate on efficient and effective systems Applications can also be processed influencing its outcomes. Dimaporo of the indigents. This amount will and ensure synergy. Since the issue is be referred to private hospitals in the for the implementation of the PIHP. through the VHWs, which means that called the health program enterprise augment the program’s resources for health service access, the Provincial province. And for the private hospi- residents of remote areas need not for Lanao del Norte the “Provincial In- medicines, supplies, management sys- Health Office should be at the core of travel far and spend much on trans- tals, since all the member patients can Facilitating the Indigency digents Healthcare Program” (PIHP). tems for personnel, facilities, and the the LGU’s coordination mechanism.” claim PhilHealth benefits from them, portation costs. These are done in they can be assured of a steady profit Counterpart partnership with local census offices by accommodating those who need and local units of the Department of Since the program was launched, there 6 Creating the health program as an economic enterprise means that its revenues and expenses would be handled by an entity outside the provincial gov- their services. A better referral system Social Welfare and Development. has been a steady increase in the num- ernment. The provincial government of Lanao del Norte provided the initial funds to establish the economic entity and the necessary infrastructure and manpower then was established. investments, but will not merge the funds of the health system with the provincial funds.

30 31 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

The operating expenses (transporta- el are encouraged to meet regularly to residents encounter emergencies in their management required, the Provin- Moreover, Dimaporo says that the main LGU’s prioritization of the health care tion, food, honoraria) of the VHWs identify their needs and priorities vis- family, whether health-related or dur- cial Resource Management Center problem of the health care system in system has changed their perception that are provided by the provincial govern- à-vis the PIHP. The barangay leaders ing familial or village festivities, they ap- (PRMC) was established, which is also terms of manpower is “brain drain”, they are “not just doctors”. ment so they can gather all the appli- convene the people, together with the proach local government officials for fi- composed of the stakeholders and where trained and licensed doctors pre- cation forms of the barangay residents VHWs who have been oriented with nancial support. But because health care core group members. The PRMC is in fer to work in Metro Manila or abroad The residents of Brgy. Bagong Badian, for mass-processing in the towns. The the key components of the provincial is already provided through the PIHP, charge of restructuring and develop- because of the low professional fees of- a village in a mountainous area of the VHWs also undergo regular training health system. For this, the provincial government officials need not shell out ing the hospitals and their operations, fered by the provincial public health sys- province, attest to the change in the at- with consultations to better enable government provided tents and chairs their personal money to respond to and has been authorized to open a tem. In the core group’s analysis of the titude of the doctors. The doctors and them to talk to the residents and fa- that the barangays can use in their such needs for additional funding dur- separate bank account for the hospital professional fees of doctors in Lanao del staff, they say, are now “mas mabait cilitate their needs. In addition, they meetings. The tents are also made ava- ing festivities. Even the provision of tents income, to ensure its independence Norte hospitals, they saw that the doc- (kinder)’ and more accommodating of are provided with first aid kits and laible by the barangay, upon request, and chairs serves as the contribution of from the funds of the LGU. tors’ fees were still at par with the rates in the needs of the patients. One resident trainings on how to give first aid treat- during weddings or special occasions, the barangay to these special occasions. the 1990s, and have not significantly im- said, “Siguro dahil ngayon alam nilang ments; the provincial government as a token of “pakikisama”7 which is The regard for community and familial In the process, the PRMC has central- proved over recent years. The system has nakakabayad na kami… . May [Phil- regularly replenishes the first aid kit essential in Philippine culture. relationships is very strong in the Phil- ized the procurement and storage of been able to raise the professional fees of Health] cards na kasi kami ngayon supplies of all VHWs. The recruit- ippines, such that a village is usually a medicines and supplies. The system doctors because of its dependence on the (Maybe it is because they know that ment of the VHWs is ongoing; after When PhilHealth applications are ap- group of extended families. And when enables more efficient replenishment annual budget allotted for health. The now we can pay [for their services]… . which they will be sent to areas that proved, the indigents do not have to go local government officials do not give of hospitals supplies and better stock PRMC aims to raise PhP 14 million for We now have PhilHealth cards).” are difficult to reach. to the town to claim their PhilHealth support for emergencies or special occa- accounting of the earnings made by the standardization of the professional cards. Instead, the local governments sions, people usually regard it as “walang the enterprise. According to the chiefs fees in all provincial hospitals. Aside from financial management While the VHWs are there as the on- (provincial to barangay-level) and the pakisama”8, or that the official does not of hospital of Kapatagan Provincial and medicine procurement, another the-ground mechanism for the PIHP get VHWs facilitate the card distribu- honor the bonds of the community. Hospital and Sultan Naga Dimaporo Aside from this, a selection board was major investment of the PIHP was access to identified areas, Dimaporo and tion in the barangays themselves. This Provincial Hospital, they coordinate created to supervise the hiring of doc- the improvement of hospitals. When the core group members themselves visit minimizes transportation costs for the Despite its cultural value, this spending with the PRMC whenever the medi- tors and staff for the provincial hospi- Dimaporo assumed the governorship, the barangays to promote awareness and indigents and encourages more resi- money on community affairs by a gov- cine supply of each hospital reaches tals. The board is currently having diffi- there were only two operational pro- encourage the citizens to enroll in the dents to apply to the program. ernment officieal is a recipe for corrup- only around half of its targeted inven- culty in hiring specialized doctors. Most vincial hospitals – both of which were program. According to some residents in tion, since there is usually no other way tory. The response time is quick, with doctors who have specializations, such under-equipped at that time. PIHP a coastal barangay, Dimaporo’s presence To ensure that the indigents can claim for them to earn back the money they deliveries made after a day or two. as oncologists, are based in hospitals divided the province into inter-local during these visits is “inspiring”, because their PhilHealth benefits, the provin- gave except to get it from government outside Lanao del Norte, and they only health zones. These are areas where they can see that the local government cial government provided “multicab” funds. But with the provincial govern- However, the procurement process un- report to provincial hospitals every now key provincial hospitals are located is serious about prioritizing the health vehicles to every barangay so that dur- ment and the PIHP covering for the derwent some challenges when medi- and then. Aside from services that they (Sultan Naga Dimaporo, Kapatagan, program. Thesebarangay visits allow ing emergencies residents even from usual contributions of barangay officials, cines purchased at cheap prices later provide, specialized doctors also allow Baloi, Kolambugan, and Kauswagan) residents to dialogue directly with Di- the far-flung areas can be transported this situation is avoided and micro-level proved to be less effective. Members of for PhilHealth accreditation of provin- to make health services more accessi- maporo and the stakeholders and express to the nearest hospital. To encourage governance can be given better attention. the PRMC say that they are devising a cial hospitals to a higher status. ble to indigents. their needs and concerns, even those that the proper use of the vehicles, gas al- system that will allow them to purchase are unrelated to the health program. Ac- lowances are given to the barangay Infrastructure and more effective but less-costly medicines. Dimaporo notes that because of the inca- The capacity of Kapatagan Provin- cording to the chairwoman of the coastal every time its multi-cab brings a pa- pacity of the former health system to pro- cial Hospital was then 25 in-bed pa- barangay, when Dimaporo visited them, tient to the provincial hospitals. Capacity Investment The PRMC has also ventured into fessionalize fees and follow a meritocratic tients, but usually served 70 patients they requested for a day care center and a professionalizing doctors’ fees in all hiring system for doctors and staff, their per day. Because of this, the staff of In order to provide for health care health center, both were built and opera- According to barangay officials, this in- provincial hospitals. When the team performance was generally substandard. Kapatagan used to build make-shift services, the program invested on the tional in less than a year. tervention from the PIHP has concrete conducted a comparative study of The doctors and staff reported late to structures they call amakan just to ac- development of hospitals and corre- contributions to the political culture on the compensation and hiring scheme office, took frequent breaks, and held a commodate patients. Under the PIHP, sponding equipment, manpower, and The stakeholders on the barangay lev- the ground level. Traditionally, when of four provinces in Mindanao, they negative attitude towards work. But with PMRC allotted funds for the hospital’s infrastructure. For all the financial found out that the procedure for hir- the adjustments enacted under the PIHP, renovation and expansion that allows ing doctors and other personnel in there have been considerable changes in the hospital now to accommodate 80

7 “Pakikisama” is a traditional Filipino value, wherein Filipinos treat others as one of them. It assumes that whatever one receives and gains in life should Lanao del Norte observed no job or- the performance of the doctors. Accord- patients at a time. Medicines are in be shared with others, in the spirit of the tightly-knit community relationships and the member’s regard to the equality of everyone’s humanity and dignity. For a ders. There was also no clear scheme ing to the chiefs of hospitals, there is now sufficient supply and are frequently more detailed discussion, refer to Virgilio Enriquez’ “Kapwa” in Sikolohiyang Pilipino: Batayan sa Kasaysayan, Perspektibo, Mga Konsepto (1979; Diliman: National for promotions and fee increases. a “sense of pride” among doctors who replenished through PMRC’s central- Research Council of the Philippines). practice in the provincial hospitals. The ized procurement system. 8 “Walang pakisama” means the lack of “pakikisama”. Refer to the preceding footnote.

32 33 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

erations – procurement, hiring, and Wala nung traditional na bola- the barangay levels, the residents said According to the Chief of Hospital Personal Insights and In October 2009, Dimaporo has vis- in Sultan Naga Dimaporo Provincial investments – are placed under the han sa pulitika. Pag trabaho, tra- how the Dimaporo’s “seriousness” gives ited 60% of the barangays in Lanao Hospital (SNDPH), they used to refer management of the PMRC. baho talaga… . Lalo na sa dead- the impression that they can trust his Challenges Faced del Norte, with the goal of visiting patients to other hospitals when they lines at targets, mahigipt yan… word, such that, “pag may sinabi syang all the rest. However, his personal The multi-stakeholder processes that run out of medicines. Aside from this, Meanwhile, the Kolambugan Provin- . Pero nasanay din kami. (With gagawin para sa amin, alam naming efforts garnered criticisms from po- Dimaporo undertook have taught him the hospital was hardly accessible for cial Hospital received computers for Gov., everything is straight to the mangyayari yun (when he says he’ll do litical rivals. Dimaporo pointed out to value internal stakeholders, “to not some people because of the absence better record-keeping, among other point. There’s none of the tradi- something for us, we know it’s going to that there has been difficulty in the take them for granted”. He also said of a concrete road. The hospital un- facility upgrades. tional politics’ fooling around. happen)”. External stakeholders, such as trust-building process because his that the key to keep their commit- derwent renovation for four years The case of Kauswagan Provincial If there’s work to be done, we do PhilHealth officials and volunteer doc- initiatives were perceived as politi- ments high is to constantly communi- (2002-2006), and when it re-opened Hospital reflects the hiring standards it… Especially in terms of dead- tors, also mentioned how efficient doing cal moves for the 2010 elections. To cate with them. in 2007 and placed under the PHIP, that the selection board is using. The lines and targets, he’s very strict business is with the local government this Dimaporo said, “It’s part of the their old problems with supplies were Chief of Hospitals has been in posi- on those. We got used to it after now compared to previous and other lo- political reality, and I cannot answer “I inherited most of my staff from minimized. The provincial govern- tion for less than a year, replacing an a while.) And true enough our cal governments they have worked with. that by denying that I have plans to my father and mother, and I often ment also spent for the construction earlier officer who had been reported work became more efficient. We run again for the 2010 elections… . I wondered how to give them the of a concrete road that made the hos- to go to office under the influence of were reaching our targets well.” Despite the discipline to enforce the do want to have health as part of my momentum to change the province, pital easier to reach for the indigents. alcohol. The PIHP core group gave new systems, Dimaporo makes a con- legacy in public service. But that’s until BL came along… . I learned SNDPH also showed a good track re- positive feedback on the leadership Those who work close to Dimaporo scious effort to relate to the people. the point really. It’s public service.” that being an executive does not cord as regards its income. In 2006, of the new chief of hospital, as she fa- also noted that he does all his speech- When he was elected governor, he But during the consultations and in- mean [those I] employ understand it profited only Php100,000 for six cilitated the improvement of relations es and presentations by himself. And knew very little of the native Visayan terviews with the people in the ba- or believe my vision, well, until we months. Under the PHIP, it earned among the staff. Meetings and consul- when it comes to technical matters tongue. Dimaporo studied the lan- rangays, the residents are conscious had the health summit. Those who around Php700,000 in 2008, and more tations with the staff in the hospital concerning projects, Dimaporo stud- guage, and though he still makes mis- of the potential for sustainability of attended said that was the first time than PhP 2 million in 2009. According are conducted every month. ies documents and comes up with his takes in pronunciations even in public the program and of its independ- they ever heard a governor ask for to the Chief of Hospitals, recommendations, which he forwards speeches, the citizens show apprecia- ence from possible political changes. The hospital also received a new X-ray to the stakeholders. “It’s a good exam- tion of his effort “na maging katulad their help… . I learned to dialogue with them… which was the way to “We were given goals to meet… machine and its accessories and a pe- ple for public officials, and any other din namin (to be one of us)”. In so far as sustainability is con- make them understand.” . But as we are able to meet the rimeter fencing project. Its capacity is boss for that matter,” one core group cerned, the continuity of the PIHP is target profits, it became easier for being expanded by 20 more beds, as member noted. Trying to learn the native tongue is within the framework in which it was As for external stakeholders such as us to make requests for the hospi- the PRMC acquired a nearby lot for not just for the relational aspect of Di- built – independent of political transi- funders and project-based partners in tal improvement… . We also had the hospital’s expansion. The systems that the program put to maporo’s work. He said, tions and the LGU’s future allocation the province, Dimaporo says that they a team building activity in 2008. place provided opportunities for a bet- of funds. However, Dimaporo thinks “cannot be depended on for co-creation”. Naging maganda yung effect noon For its counterpart, the Kauswagan ter work culture to exist. The employ- “I am a very young governor talk- that the entire project is still in its “in- Their commitments are often short-term sa relationships ng mga doctors Provincial Hospital conducts free ees in the provincial government use ing to very old barangay officials. fancy stage”. Despite the many suc- and not sustainable, and they are highly and staff.Mas maganda ang atti- consultations for out-patients and biometric machines to properly ac- They might not listen to me, espe- cesses within a short period of interested in results. However, Dimaporo tude nila ngayon (It had a positive free clinics to increase its number of count for their work hours. To facilitate cially that it is more natural for me time, Dimaporo said the stakeholders said, “For external stakeholders, the prin- effect on the relationships between patients; two of the medical programs the reporting of employees on time, the to speak English. It was something are “still establishing co-ownership ciple is, the more the merrier.” the doctors and the staff. They were conducted in 2009. In March of LGU acquired two buses that serve as I had to deal with personally. I had and co-creation,” since his benchmark have better work attitude now).” 2009, the hospital’s capacity had been the employee’s transportation service to gain their trust… .that I was one is a self-sustaining health program for Dimaporo described his personal lead- For 2010, SNDPH seeks to apply for 50% filled, and since July 2009 it has to work, given that most of them live of them, that I care for their needs. the province. He hopes to achieve this ership experience as “humbling”. This Level 2 PhilHealth accreditation and to reached a capacity of 85-90%. in areas far from the provincial govern- I want them to trust me.” vision in a couple of years. realization did not occur to him, until increase its capacity by 30 more beds. ment office. Team-building activities he attended the BL workshops where have been organized and year-end per- Furthermore, to ensure that the pro- Dimaporo is open to the possibility Changing Work Culture stakeholders’ co-ownership of goals A hospital was earlier located at Pan- formance bonus have also been given. cesses within the PHIP are profession- that he would move onto a different and programs were given emphasis. He tao Ragat but needed to be transferred alized, a Citizens’ Charter for Health is governance agenda later on, especially Dimaporo’s discipline and efficiency shares, “Before I felt I was God. Now I because of security concerns. The mu- The chiefs of hospitals also said that they being drafted. The document contains when the health program already runs in work is like a “contagion” among feel like a slave. Before I would tell peo- nicipal government of Baloi donated had to make adjustments to “follow the all the guidelines and procedures that independently. He says, “When it those who work and meet with him. ple what to do, now I ask them, ‘How its hospital to the provincial govern- pace” of the new working culture un- every indigent should know in claim- comes to health care, I know that this His core group attests to his profes- can I help you?’… and I suppose, the ment, under a contract that the Baloi der Dimaporo. However, they also ex- ing their benefits and going through is not all [that the people need]. This sionalism. One of the core group best way for a younger person to ap- Provincial Hospital will be built. The pressed that the “results-oriented” work the processes of the program. The Cit- might be the priority now, but then members said, proach older barangay captains is to construction of the building is now attitude has helped them achieve many izens’ Charter for Health is targeted to later on we have to move forward.” say, ‘What can I do for you?’” nearing its completion, and its op- “Kay Gov., straight to the point. successes over a short period of time. In be ready for distribution in early 2010.

34 35 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

On October 27, 2007, General Benjamin Dolorfino and Professor civilians were compelled to abandon to take the entrance examinations for Philippine Constabulary was mired in Ernesto Garilao organized a Sulu Roadmap Closure Workshop their homes and livelihood. the PMA. In preparation for the ex- corruption charges, which was why ams, he enrolled for one semester in my mother did not want me to join to re-convene the stakeholders of the Sulu Roadmap for Peace, Violence initiated by lawless elements an engineering course. He was later the PC. She also did not want me to a multi-stakeholder effort for peace in the province of Sulu. This such as alleged terrorist groups asso- on accepted to the PMA. join the army and air force because process, lasting over a year, spanned a series of meetings between ciated with Jama’ah Islamiya and Abu she thought that their assignments Sayyaf, occasional skirmishes between At the PMA, his experiences were were too dangerous. She said “You stakeholders in the province and brought together the different the MNLF and the AFP/PNP, and local tough and challenging. After the sum- may only join the navy.” sectors involved in the complex issue of peace in the province. clan wars deepened the already wide mer camp training, he was visited by social divides and problems. Problems his parents who failed to recognize At the navy, my superiors recom- included the lack of livelihood oppor- him. According to Ben, “I was already mended me for flight training in the The workshop has two objectives: (1) the Government forces for decades. tunities, the inadequacy of health ser- standing in front of them but they Naval Air Group. I only told my moth- to reflect on the events that had hap- vices, the poor quality of education, and just passed by me. I called out to my er about it after I graduated from the pened during the roadmap process so Despite several attempts of internation- environmental deterioration. These mother, and when she turned around training and became First Pilot. That as to distill insight, and (2) to revisit al agencies, the national government, problems, in true cyclical fashion, were she was so surprised at my appearance was in 1977, at the height of the armed the vision of the roadmap and discern and non-governmental organizations blamed for the series of armed conflicts that tears streamed down her cheeks.” rebellion in Mindanao. As a pilot for the value of continuing the process. to solve the problem of poverty in the plaguing the province (see Exhibit 1: the naval air group, I flew the helicop- province, Sulu remained one of the Human Development Indicators of the Because of the rigid schedule and tough ter for the marines in Mindanao. My Many things had transpired since the poorest provinces in the Philippines. Province of Sulu). Thus was the situa- exercises, Ben had lost a lot of weight group’s tasks were to evacuate the ma- process began in January 2006. At the tion of Sulu when General Dolorfino, a and grown darker. “My mother want- rine casualties and bring food and sup- The Sulu Roadmapvery least, the workshop provided an The lack of infrastructure, access veteran of Mindanao conflict, arrived. ed me to resign right there and then. I plies to wherever they were assigned”. opportunity to learn from the effort to basic services, and poor govern- was very thin and was coughing a lot. He moved on to be the Administrative for Peace and General ance contributed to the poverty and exerted. Going into the workshop, Moving Towards Sulu I thought to myself, ‘But isn’t this what Officer of Headquarters and the Head- Benjamin Dolorfinoneither General Dolorfino nor Profes- underdevelopment of the province. my father wanted?’ I refused to resign quarters Support Squadron, Naval Air sor Garilao knew if the relationships Although hostilities between the Ben Deocampo Dolorfino1 was born and carried on with my training.” Over Group in 1978, after a year of being on in the group were strong enough to government and the Moro National on November 10, 1954 in Dumangas, the years, Ben rebelled against his par- official flying status. In 1979, while as- be worth pursuing further. Both men Liberation Front (MNLF) officially Iloilo. His parents, Agustin Dolorfino ents’ wish for him to resign. “I was de- signed in Zamboanga, General Dolor- were eager to find out. ceased when the 1996 Peace Agree- and Amalia Deocampo, were elemen- termined to see it through.” fino met and became engaged to Ann, ment was signed, the economic, po- tary school teachers who later on re- a Muslim whose lineage was part Chi- litical and security conditions of the 2 The Province of Sulu tired as district supervisors. Agustin In 1976, he graduated with the Phil- nese and part Tausug . Ann’s mother province did not improve. A major had wanted to join the military but ippine Military Academy “Magilas” required that General Dolorfino be Sulu, an island province of the Phil- factor was the inability of the Regional did not qualify due to physical imped- Class. He started his field career as converted to Islam. ippines, is located in the Autono- Autonomous Government, tasked at iments. Thus, when his sons came of Mess and Supply Officer of RPS Datu mous Region of Muslim Mindanao mainstreaming the leadership of the age, he tried to convince the older one Kalantiaw (PS-76), Naval Defense In 1981, General Dolorfino was pro- (ARMM). The province, whose capital MNLF, to deliver the requisites to a to enroll in the Philippine Military Forces in 1977. General Dolorfino re- moted from First Pilot to Senior Pilot is Jolo, occupies the middle group of better quality of life. Tension between Academy (PMA) rather than in medi- counted, of the BO-105 helicopter. Thereafter, islands of the Sulu Archipelago. Situ- the military and the MNLF persisted cine, but for naught. Ben, being next he assumed various administrative ated between Basilan and Tawi-Tawi, and was sometimes coupled with in line, pitied his brother who was be- My parents gave me strict instruc- and operational duties in the Philip- it had been the site of the deadliest armed clashes. In almost every armed ing forced into joining the military. To tions not to join any unit other than pine Navy. Since he was doing well in clashes between the Moro rebels and encounter between the two groups, resolve the dilemma, Ben volunteered the Philippine Navy. At that time, the his career, he proposed to his fiancé

This write-up was written by Copyright 2008, Asian Institute of Management -TeaM Energy Center for Bridging Societal Divides, Makati 1 Some parts of this biography were lifted from the case written by Cecilia Ubarra entitled, “Forging the Peace in Buliok: Colonel Ben DeOcampo Dolorfino Prof. Michael Joseph U. Juan City, Philippines. No part of this publication may be reproduced, stored in a retrieval system, used in a report and the 2nd Marine Brigade”, 2005: Asian Institute of Management, Makati City, Philippines. or spreadsheet, or transmitted in any form or by any means – electronic, mechanical, photocopying, record- under the supervision of Pro- ing or otherwise – without consent from the Asian Institute of Management -Team fessor Jacinto C. Gavino Jr., Energy Center for Bridging Societal Divides. To order copies or request for the reproduction of case materials, 2 The name Tausug, which means “people of the current”, refers to a Philippine ethnic group in the northern part of the Sulu province. One of the distinctive write to The Administrative Officer, AIM-Team Energy, MCPO Box 2095, Makati City, Philippines or email characteristics of this people is their preference for houses on stilts near the sea. The Tausugs were known for their carvings, metalworks, woodworks, tapestry and DPA of the Asian Institute of : [email protected]. embroidery, mat making and basketry, textile and fashion, pottery and other minor arts. Management.

36 37 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

and got married that same year. The feat by putting up checkpoints near assistance. He likewise called on other held in Barangay Gli-gli, was success- reengaging the MNLF was to promote Final Peace Agreement. In an interview couple has three sons: Abraham, Jan the three sawmills in the area so that individuals and organizations such as ful. Representatives from the mayor’s responsibility and power sharing be- he said, “A peace agreement cannot pro- Michael, and Marvin. In 1985, Ben loggers had no option but to undergo the local government officials, NGOs/ office, national government agencies tween the MILF and the MNLF 4.” mote lasting peace. It is merely a depar- Dolorfino was invited to transfer to inspection. Some illegal loggers tried People’s Organizations, and other AFP/ such as the DSWD and DepEd, NGOs ture point to solve the real problems on the Philippine Marines. to bribe him with PhP 500,000 plus an PNP units to help in the program. The and POs attended the consultative To start the talks between the GRP the ground. The society should be in- undisclosed amount as monthly sti- Community Service Day proved effec- meeting to dialogue with the residents and the MNLF, General Dolorfino ap- volved in creating new realities because As pilot for the Marines, General Do- pend, but “I told them the good name tive in fostering good relations between about their needs. proached the Chief of Staff of the Bang- the present realities are the causes of the lorfino received several awards includ- of the Philippine Marine Corps was the soldiers and the civilians. Within samora Armed Forces, Hajid Jolham conflict in Sulu. The agreement is use- ing the Distinguished Service Star; not for sale and cannot be bought,” four weeks from the 2MBDE’s arrival, After a few months in North Cotabato, Misuari, who is Nur Misuari’s nephew. less if the society itself does not promote the Distinguished Aviation Cross; the narrated General Dolorfino. Because most of the families in evacuation cent- General Dolorfino was redeployed to General Dolorfino asked him the rea- these things.” In less than a month, the Bronze Cross; the Silver Wing Medal; of his unit’s excellent performance, ers had returned to their villages. Lanao del Norte and tasked to lead the sons his group remained in the moun- president approved the roadmap, and the Military Merit Medal; the Military the DENR awarded him PhP 50,000, Joint Task Force Lanao, which focused tains despite the peace agreement. preparatory moves to implement it im- Commendation Medal and Military which he turned over to the battalion It was during his command at Pikit that on addressing security threats and mediately began. Civic Action Medals; the CBT Badge commander who replaced him. Ben Dolorfino first came across the maintaining peace and order in Lanao Misuari cited two reasons for their “Kagitingan” (bravery); and the Senior Bridging Leadership Framework. He del Norte, Lanao del Sur, and the cities position: the arrest and detention of Even after the roadmap was approved, Naval Aviator’s Badge. One of the toughest challenges of his had then accompanied General Senga of Iligan and Marawi. A few days after Chairman Nur Misuari, and the inad- General Dolorfino had to contend career was when he was a Brigade Com- who was his Division Commander to he was conferred the royal title of Datu equate implementation of the 1996 Fi- with implementation problems. It was One of these was in recognition of his mander. After being assigned to Lanao a Bridging Leadership Workshop or- Sri Romapenet (peacemaker) by the nal Peace Agreement. Thus apprised, highly possible that his group would skill in flying a helicopter while on a del Sur, he and the 2nd Marine Brigade ganized by the AIM-Mirant Center Sultan Ditsaan Ramain of Lanao del the General offered to reopen the dis- be unable to gather enough support rescue mission in Corregidor. (2MBDE) were transferred to Pikit, for Bridging Societal Divides for the Sur in recognition of his accomplish- cussion of the two issues, on the con- from the people of Sulu for the initia- A boat had capsized because of stormy North Cotabato to maintain peace and Bangsamoro Development Agency ments peacemaking, General Dolor- dition that the MNLF would cooperate tive. As the possibility of failure hung weather, but some civilians were able order after a recently concluded war be- (BDA) in Davao. Ben Dolorfino and fino (then Colonel) was promoted to in the peace and development projects in the balance, he thought of ways to to swim to the shore and cling to a cliff tween the military and the MNLF in the General Senga were invited to repre- Brigadier General. He worked for the of the government. Misuari agreed to engage all the groups in Sulu, however wall. General Dolorfino flew the heli- area. They were also tasked to convince sent the AFP in the communities that Office of the Presidential Adviser on Dolorfino’s condition and set forth his daunting the process appeared. copter as near as possible to the civil- the evacuees that it was safe to return to they were trying to develop. It was dur- the Peace Process (OPPAP) and started own: that government would give the ians so that a rope could be lowered their respective barangays3. However, ing this three-day workshop that they his immersion in the field. MNLF socio-economic assistance. Fortunately, two years ago, he was able to them. He also kept the helicopter this proved difficult because of the civil- honed their skills in multi-stakeholder to attend a seminar on Bridging Lead- steady so that it would not crash into ians’ distrust of the military. engagement and interacted with their The First Step Towards After settling matters with the Chair- ership in Davao, which focuses on a the cliff while the rescuers assisted the actual stakeholders in the security of man’s nephew, General Dolorfino de- multi-stakeholder process to resolve civilians in going up the rope amid the their areas of responsibility. Peace livered the good news to Nur Misu- conflict. He thought of the best possi- stormy weather. To diffuse the tension, the first things ari. In their conversation, Chairman ble way to engage all the stakeholders After General Dolorfino’s assignment that General Dolorfino and the After noticing how most LGU officials Misuari expressed his concern over in Sulu and ensure the full implemen- to Lanao del Sur, he became involved From 1985 onwards, his military ca- 2MBDE did were to clean and reno- were not visible in their respective ju- the insincerity of the government. tation of the roadmap. Coincidentally, in the peace process as the Chairman of reer surged ahead, as he assumed vate the mosque of Barangay Gli-gli risdictions, he thought of organizing a He, however, later agreed to General Professor Ernesto Garilao, the execu- the GRP Ad Hoc Joint Action Group. various positions in the Philippine in Pikit. This act produced the desired People’s Day that would bring together Dolorfino’s proposal, provided that tive director of the AIM-Mirant Center Although the peace process meant to Marine Corps. He excelled in many of effect such that when the 2MBDE re- civilians and officials of national and bloodshed would be avoided in the for Bridging Societal Divides, talked to focus solely on the MILF, the group his assignments. For example, while turned to the barangay to build a de- local government agencies and NGOs pursuit of the criminal groups. General Senga about the possibility of thought it also necessary to re-engage he was assigned to Infanta, Quezon, tachment the next day, the residents in one venue so that they could dis- conducting training on Bridging Lead- the MNLF. The General recounted, he had to contend with illegal log- offered to help them. Thereafter, the cuss the problems of the community After talking with Chairman Misuari, ership for the AFP. Their conversation ging. After just one and a half months, General launched the Community Ser- and arrive at solutions. Such discus- General Dolorfino sat down with Direc- eventually paved the way for the inte- “We thought of re-engaging the MNLF General Dolorfino filled the battalion vice Day whereby every Saturday, the sions would also help avoid the dupli- tor Ryan Sullivan of the OPAPP. Togeth- gration of Bridging Leadership in ap- in the peace process because we saw that, headquarters and the compound of 2MBDE would go to the barangay to cation of services offered by various er they drafted the MNLF roadmap on plicable courses in the AFP. assuming they would have a disagree- the Department of Environment and help the residents clean the area, build parties and ensure the equitable distri- how to achieve peace in Sulu. General ment with the MILF, peace in Mindanao Natural Resources (DENR) with con- or fix infrastructure, undertake a medi- bution of resources across communi- Dolorfino noted the necessity of a road- Upon hearing this, General Dolorfino would not be assured. So our objective in fiscated logs. He accomplished this cal mission, or provide other forms of ties. The first People’s Day, which was map that would complement the 1996 proposed to Professor Garilao and

3 Villages. 4 The Moro National Liberation Front was organized in the 1970s by Nur Misuari to create an independent “Moro nation”. The Moro Islamic Liberation Front (MILF) is an offshoot of the MNLF. It was formed in 1981 when Hashim Salamat and his followers split from the MNLF due to the latter’s reluctance to launch insurgent attacks against the Philippine government forces and to move towards a peace agreement (http://en.wikipedia.org/wiki/Moro_Islamic_Liberation_Front).

38 39 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

General Senga that Sulu be taken as that we are working for peace and de- brigade commander had four battal- of the Sulu Chamber of Commerce. ed by development organizations in armed camps in Sulu and engages in a laboratory case where the Armed velopment, and the implementation ions under him. Even if General Do- The other group consisted of advo- partnerships with local civil society numerous armed encounters with Forces and the stakeholders would of the peace agreement; we just have lorfino was the deputy commander of cacy based civil society organizations organizations and communities to- the military over the years. The no- be trained on Bridging Leadership. to define the process to bring people the Southern Command and techni- that mostly worked on improving gether with the local government and table commanders of the MNLF in Both agreed with his proposal so that together.” The stakeholders whom cally held a higher rank than the com- community awareness of what they other relevant stakeholders. The net- Sulu are Chairman Khaid Adjibon the roadmap created by General Do- General Dolorfino wanted to convene manders in Sulu, the Sulu ground com- believed to be the growing militariza- work engages and supports local lead- and Ustadz Habier Malik. It would, lorfino became the centerpiece of the were: manders did not report directly to him. tion of Sulu. Notable leaders from this ers and other multi-sectoral constitu- however, be impossible to conduct a discussion during the seminar. General Aleo did not openly oppose perspective were Cocoy Tulawie and ents to develop lasting solutions to the dialogue with them because there are • THE OFFICE OF THE PRESI- the process proposed by General Do- Atty. Ulka Ulama, both from a group poverty, conflict, and marginalization issued warrants of arrest for them. Pre-workshop Activities DENTIAL ADVISOR ON THE lorfino but was also not very support- called the Concerned Citizens of Jolo. in the region. Supportive local elected The dialogue involved MNLF leaders PEACE PROCESS (OPAPP). This ive. He was often unavailable for the An inclusive process was undertaken officials were Mayor Salip Aloy Jainal who were not engaged in the armed General Dolorfino and Professor office which directly reports to the pre-work leading up to the first work- such that presentations were made to of Indanan and Mayor Al Kramier conflict. A number of former political Garilao knew that the Bridging Lead- President of the Republic of the Phil- shop. General Pajarito was also not all the CSOs interested in the process. Izquierdo of Jolo. officers of the MNLF remained with- ership Workshop scheduled for March ippines was involved in seeking peace very involved because he was already Efforts were exerted to ensure that the in the bounds of society to continue would not be a regular workshop. agreements between the Government transitioning into a new post outside CSO group included those normally • THE PHILIPPINE NATIONAL advocating the implementation of the They knew that for the workshop to of the Republic of the Philippines and of Sulu. He would not be very involved outside the network of Pagtabangan POLICE (PNP). Many of the issues in 1996 Peace Agreement and the release succeed, the participants and the facil- the different insurgent groups, no- in the whole roadmap process. On the Basulta as well as those who, in the Sulu that dealt with the maintenance of of Nur Misuari. This group included itators should be prepared for the dia- tably the following: the Communist other hand, Colonel Sabban openly op- past, expressed negative views of the law and order are generally viewed as important members of Sulu society logue. A series of activities was thus Party of the Philippines–New People’s posed the initiatives of General Dolor- military or some other stakeholder. police functions. Each municipality in like Dr. Samsula Adju, a professor at conducted to prepare both groups. Army (CPP-NPA), the Moro National fino mainly because of his belief that Sulu has a police contingent tasked to the Mindanao State University-Sulu Liberation Front (MNLF), the Moro there was already an existing peace • THE LOCAL GOVERNMENT work with municipal governments to and Engr. Joselito Jilhano who was 1. First Stakeholder’s Consultation. Islamic Liberation Front (MILF), and agreement with the MNLF and ad- UNITS (LGUS). The elected officials maintain order in the areas. The PNP connected to the Jolo Water District. the military rebels. OPAPP was seek- ditional roadmaps were unnecessary. of the province and the municipali- Provincial Director, Col. Ahiron Ajirin Gen. Dolorfino met with Nur Misuari There were two consultations prior to ing an agreement with the MNLF re- More information would surface when ties of Sulu constituted an important was involved in the process as well as and sought his approval for the initia- the workshop. The 1st Consultative garding the Misuari breakaway group. the stakeholder interviews were done stakeholder. They are important per- Col. Sajiran Sakilan, Chief of Police of tive. Misuari recommended Kong Ja- Meeting took place in Zamboanga on General Dolorfino headed the coor- about the positions in the Military. sonalities in the area as they decide on Patikul, and Col. Usman Pingay, Chief masali to be included in the dialogue February 26, 2006. Present were rep- dinating task force. Aside from Gen- how local government funds should of Police of Indanan. These municipali- who was immediately contacted and resentatives of the MNLF named by eral Dolorfino, the OPAPP team was • CIVIL SOCIETY ORGANIZA- be spent. Although invitations were ties were identified because they are ar- invited. These leaders did not have au- Misuari, the CSOs, and the military. made up of people from the Program TIONS (CSOS). The CSOs encompass sent to the Governor and all the may- eas with the strongest MNLF presence. thority over the MNLF commanders The Governor and some mayors from Implementation and Monitoring Of- the entire spectrum of civil society or- ors of the 18 municipalities of Sulu, Their presence was secured because of but had open communications with Sulu came later. General Dolorfino ex- fice headed by Susan Marcaida. This ganizations in Sulu. The Pagtabangan invitations to mayors of municipali- the directives issued by the governor the armed groups. plained the objectives of the workshop. group was active in the writing and Basulta 5 convenors were the most ties with identified MNLF presence and by General Dolorfino. After the presentations, the group the development of the roadmap but it involved but other organizations were were prioritized. Funding support 2. Generative Interviews. talked about their assessment of the was really General Dolorfino that was brought in as well. There were gener- for this initiative was provided by the • THE MORO NATIONAL LIB- situation in Sulu. Different conceptual driving the process. ally two perspectives of the civil socie- Governor of Sulu, Benjamin Loong. ERATION FRONT (MNLF). The After the first consultation was done, maps helped facilitate the discussion. ty in Sulu. One perspective was borne Gov. Loong had known Prof. Garilao standing peace agreement between generative interviews were conducted • THE MILITARY. The military in by the Pagtabangan Basulta convenors since the latter was in the Philippine the MNLF and the Government of from March 1 to 10, 2006 with select Different concerns were raised, such Sulu is composed of contingents from and their allies. These groups were Business for Social Progress (PBSP). the Republic of the Philippines (GRP) respondents from the different groups. as the need for room to vent one’s an- the Marines and the Army. The overall open to the dialogue process with The other Pagtabangan BaSulTa is a signed in 1996 stopped hostilities for The questions operated on different ger, which was seen as crucial to build- on-the-ground commander was Gen- other stakeholders and were willing to network of social development or- many years. In Sulu, however, there levels. They ran from “Would you mind ing effective relationships between key eral Albert Aleo, who reported to the improve their capacity to undertake ganizations who operate on a national remained a group of combatants in if I asked you a personal question?” to stakeholders. There were also discus- head of the Southern Command, Gen- development projects for communi- scale and local multi-sectoral leaders the hinterlands called the Misuari “What about the situation in the prov- sions regarding other individuals or eral Habacon. The deputy of the South- ties in Sulu. Prominent leaders within in Basilan, Sulu and Tawi-Tawi. The group which, led by former Autono- ince of Sulu, do you think it will im- groups that should be invited to the ern Command was General Dolorfino. this group were Fr. Jose Ante of the program is a collaborative approach mous Region of Muslim Mindanao prove or do you believe that things will workshop, among them other Islamic There were two brigades in Sulu and Social Action Center of the Archdio- between different stakeholders in Ba- (ARMM) Governor Nur Misuari, re- get worse?” Topics ranged from the leaders and mayors who were unlikely their commanders were (then) Colo- cese of the Vicariate of Jolo, Dr. Han- SulTa in order to bring about vibrant sumed the armed struggled against personal (experiences, convictions and to come but should still be invited. nel Juancho Sabban of the Marines bal Barra, a professor at the Mindanao communities. It operates primarily at the government in November 2001. roles performed) to the social (current An interesting realization dawned on and General Nehemias Pajarito of the State University-Jolo, and Abdulsali the provincial level, where local ini- While Nur Misuari had already been reality, predicted future) realities of the the groups: “There is [an] agreement Army who reported to Gen Aleo. Each Ahalul, a businessman and member tiatives and projects are implement- captured, the group still maintains respondent. Experiences recounted at

40 41 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

the personal level concretized the theo- time to time.” Someone from the AFP tives on the same issue. For example, who • “Why do I have to co-own the military is around. Why are we talk- asked if the attendance of the mili- retical reality usually passed down as said, “I hope to see Jolo demilitarized... should claim credit for improvements in problem? The problem wasing about the release of Misuari when tary officers could be made optional, filtered, “censored” data. . If demilitarization is not possible, then the area: the military or government? created by outsiders; why do I he is guilty of corruption and many but General Dolorfino said that there even just a reduction of forces will do.” There were tensions, too, between the have to own it?” crimes? He was given his chance, and was no such thing as ‘optional’ in the The interviews gave the facilitators a A CSO respondent declared, “We will national military and the local police in • “The Americans have to get out he had nothing to show for it. Why are military. Professor Garilao further unique chance to share in the reality of have to achieve peace first before we can terms of discrepancies, of situation and of Sulu. Will this be discussed? we soft on Misuari when we are tough conveyed his concern that the military the people in Sulu. Dialogue Interview see progress.” “Who would not like to roles. It was the general sentiment of Americans could be out of the with the military offenders? Why not officers might walk out of the work- questions were prepared and pieces of have a peaceful life? Everybody knows some in the military that they were tak- picture.” make him pay for his crimes?” shop given their issues; but General information were collated and given by experience that war destroys, while ing on what should be the function of • “Will the senior military officers Dolorfino assured him that the offic- to the facilitators. The specific repre- peace builds. Only fools would want the police when they conduct operations be there?” Professor Garilao reflected, ers would not walk out and that the sentatives for every sector that were war and poverty…,” an MNLF respond- to stabilize the local peace and order workshop should proceed as planned. interviewed were the following: ent said. Apparently, peace was a run- situation. On the other hand, the police Professor Garilao clarified that the “The resistance was obvious. I ning theme in their answers. Despite believed that they were not equipped workshop would be an opportunity to could sense why they were actu- Following the conversation, Profes- Sector Name Designation / Office efforts, however, peace remained elusive to deal with local criminals and armed thresh out matters because the senior ally saying what they did. First sor Garilao decided to modify the • Military Gen. Alberto Aleo except for certain sectors in the govern- groups and that it was the military that military officers would be present. He was the lack of consultation. They plan. As early as Day 1, the workshop Commanding General, Task Force ment. Many respondents pointed out should handle these groups since they also assured CSO leaders that the lo- had not been previously consult- would gather all the stakeholders so Comet how Sulu remained in the dark. For in- have the larger force and better equipped. cal government officials, particularly ed and I could see that they could that the military would immediately • Military Gen. Nehemias Pajarito stance, an MNLF respondent remarked, The MNLF and CSOs were pessimistic, the mayors, had been invited. Profes- not pick up the idea that they face the police and the MNLF; the Commander, Philippine Army “Since when did we become better off? while government was optimistic. One sor Garilao mentioned that the two were part of the process in com- Sulu Peace road map would be tackled Brigade We did not experience that because it is thing was certain, however: they would MNLF representatives he met looked ing up with the final roadmap. on the fourth day. It was also agreed • Military Col. Juanco Sabban not allowed to happen to us Muslims by share the same future. forward to the meeting. that the General Dolorfino would Commander, Marine Brigade the Christian government.” A CSO rep- “Second, they were in pain. Their com- meet the different officers prior to the • Police Col. Ahiron Adjirim PNP resentative said, “Everybody wants a de- The people were similarly aware of the The last session was done with the plaints against the police and the local workshop and he did, one day before Provincial Director cent and honest living. But how can you discrepancies between the current re- military. General Aleo was not avail- mayors had not been acted upon and the workshop. General Dolorfino re- • Police Col. Sajiran Sakilan Chief of make it in an environment like this… ality of Sulu and what they dreamed able, but the brigade commanders of yet they were being asked to put their counted how it went, Police, Municipality of Patikul ?” But they also agreed, “If left alone, it could be, and it was this dissatisfac- both the army and the marines were lives in danger on a daily basis. I could • Police Col Usman Pingay Chief of things will get worse… .” tion that pushed them to act in the present. As soon as Professor Garilao also sense marine politics between “The military clearly did not like Police, Municipality of Indanan only way they knew how. The problem started presenting the design he could Sabban, the highest-ranking Marine the idea to include MNLF in the • MNLF Dr. Samsula Adju Amid all the gloom, little sparks of hope lay in the development of the process sense the restlessness of the partici- commander in Sulu, and Dolorfino discussions. They had two major • MNLF Joselito Jilhano remained in these people. Sincerity and and how to get everybody to agree in pants. Apparently, while discussions with regard to [other issues]. I would armed clashes in the last year, and • MNLF Asjad Muksin honesty in service were two virtues following it. and agreements were made with the later also find out that both Sabban wondered why they had to include • Mayor Salip Aloy Jainal, identified by some respondents as key top commanders, this did not nec- and Dolorfino were front-runners for them. I understood their senti- Municipality of Indanan to improving their situation. And an 3. Second Consultations with Stake- essarily mean that the ground com- the Marine Commandant position as ments. They had just fought; and • Mayor Tambrin Tulawie, important insight was best expressed by holders manders were in agreement. Professor soon as it became vacant.” now they were going to be involved Municipality of Talipao another respondent who said, “If I’d be Garilao recounted the conversation in a discussion about the problem. • Mayor Al-Kramier Izquierdo, [given] the chance, I will talk with the With the design finally in place, it was with the battalion commanders, After the exchange with the offic- Municipality of Jolo leaders in Sulu. I will persuade them now important to give the stakehold- ers, Professor Garilao thought it fu- “I ended the consultation by tell- • Luis Go, Jr. , President, Sulu that it is time for us to think about the ers the final draft of the design, the ob- “Why talk peace with the MNLF? tile to continue the consultations. He ing the military that they were Chamber of Commerce future of the next generation. We only jectives, processes, and expectations. Aren’t they finished? Are we going to thought that the group was stuck and hiding in their box, like hermits. • Atty. Ulka Ulama, Concerned have one life to live, we should make the Professor Garilao went to Sulu and revive them? Why not just concen- was not open to further discussion, al- They had to get out of the box Citizens of Sulu most of it by living it well.” The com- first spoke with the CSOs leaders as- trate on development?” Why were we though he did tell them that he would and dialogue with other stake- • Ustadz Habier Mohammad, Sulu ments struck Professor Garilao because, sembled by the Pagtabangan Sulu and not consulted for this road map? We communicate their concerns to Gen- holders and come up with a Ulama Council according to him, “The interviews cap- the Peace and Unity Task Force. Most should get our act together. General eral Dolorfino. He also recommended collaborative assessment. I said tured their hope and dreams, fears and of those who raised objections were Dolorfino is not from Sulu. He does that General Dolorfino should meet the Sulu situation was a com- There were varied answers in the gen- inadequacies, and most importantly unfamiliar with the BL process. That not know the conditions here. We with them before the training. plex problem. If you are going erative interviews. A respondent from their goals and direction.” they viewed or interpreted terminolo- bore the brunt of the fighting here. to change society without their the PNP said, “I would really be happy gies in the same manner could not be The people go to us since the local Professor Garilao immediately called concurrence, you will have to if military operations ceased, so that Divides among the sectors were most presumed. Some of the issues raised government officials are not in the General Dolorfino in Zamboanga use force and if you use force, my family won’t have to evacuate from apparent, as were their differing perspec- during the consultation were: stations most of the time. Only the to report his recommendations. He there will be resistance. You have

42 43 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

to get out of your box, I said, in- bating. You can only dissect the prob- It was a tripartite peace agreement be- The seminar succeeded in opening lines roadmap which was then presented to ensure the security of the OIC: Kil- teract with the other stakehold- lem if you will dialogue. This involves tween the Government of the Philip- of communication and establishing re- the other members in Sulu. ometer 4 was designated as a strictly ers, dialogue with them, learn actively listening to the one talking pines, the MNLF and the Organiza- lationships between the stakeholders. no-firearms zone. Two holding areas more about the problems that and seeing the problem in his eyes tion of Islamic Countries (OIC). After the seminar, some of the groups Although the initial roadmap was creat- Timbangan for the Panamao group you are confronting so that they or having empathy for the speaker.” convened on their own. Aware that ed under the auspices of the OPAPP, the and Buansa for the Indanan side were will have co-ownership of the Eventually the atmosphere changed Involvement in security and political sustainability would be an issue based final roadmap would later become lo- put up two kilometers away from Kil- problem and will collaborate in and the military and the MNLF start- matters by other groups would violate the on his experience7, General Dolorfino calized, with all the members of the Sulu ometer 4 in order to ensure that the coming up with solutions toward ed to talk rather than debate. agreement. General Dolorfino did offer organized the group that attended the Bridging Leadership Advocacy Group order was strictly implemented. creating new realities. The pre- them the option of participating in future seminar and called it the “Sulu Bridg- contributing their respective outputs. It sent realities are the results of the Another problem encountered came meetings as a socio-economic working ing Leadership Advocacy Group”. In- was then decided that the adopted road- The MNLF requested that they be al- present problems, I said. I then in the form of a group of foreigners group. Until December 2006, CHD had stead of the usual organization con- map would be implemented by the area lowed to carry at least five guns, a re- showed them how the problems who wanted to join the seminar. One not decided whether they would. sisting of a president, a vice-president, coordinating center of Sulu. quest the general in charge initially are multidimensional and inter- of the foreigners was a representative etc., a convener for each sector was as- granted. Later on, however, the general dimensional.” of the American forces, while another The aforementioned was not to be the signed. Then committees were created Roadblocks to Peace changed his mind because it would in- belonged to the GRP-MNLF Peace most serious problem encountered to focus on each dimension to imple- dicate a show of force. General Dolorfi- In that meeting the military admitted Working Group, which an NGO called during the seminar. At about 2 p.m. of ment the necessary projects. Not all members of the military wel- no personally thought, however, that the that they were all part of the problem. the Center for Humanitarian Dialogue the same day, a bomb exploded in the comed the opening of communica- military should not attempt to hide the 5 That was the beauty of the meeting; (CHD) had put up . Civil society did Notre Dame of Jolo Cooperative Store During the seminar, the roadmap that tion lines and the forging of new re- issue of having a show of force because they admitted to their role. They said, not want any foreigners around during in downtown Jolo, killing eight people General Dolorfino and Director Sul- lationships between the military and this was specifically what the meeting “We are also contributing to the prob- the seminar. The one participant who and wounding many others. A Marine livan made was presented. Originally the MNLF. Not everyone was ready to was about. He met with the Indanan lem. We use too much force. Because spoke for civil society explained: officer near the vicinity of the explosion containing three components, namely, break out of their shells, as clearly il- group who no longer wanted to go to of the bombing and shelling, civilians became suspect because he was found security, socio-economic, and political, lustrated during the visit of the OIC to the assembly area any longer because 6 get displaced. In the process, there are “We, as a group, decided not to allow carrying a plastic bag with wires . it was modified by the participants to pave the way for the resumption of the they were afraid. They said, “General, if military abuses, human rights abuses the foreigners to attend the seminar include two more: cultural and envi- 1996 Final Peace Agreement. you want to go to Buansa, ask for some and insensitivity to the local culture.” because they are not stakeholders in Rumors about the involvement of the ronmental. It was also agreed upon at security from the Marines.” Failing to do I replied and said “Great! During the this issue. They cannot be one because military in the bombing immediately cir- the seminar that the group would make General Dolorfino, in accordance that and despite the risk, he went ahead seminar I will say this: that you report- they have their own programs and culated, disrupting the seminar as some its own roadmap, which would thus be with the Sulu Roadmap and in coordi- to Buansa with the wife of the leader of ed that you are part of the problem.” In agenda in going to Sulu.” Marine participants left to “rescue” their a localized roadmap. Given the time nation with the MNLF representatives the Indanan group. The other MNLF the end, they softened up and their re- man from the police. Other military of- constraints, however, it was agreed that of the Bridging Leadership Advocacy members did not want to join him. sistance to participating was less.” Consequently, the foreigners were not ficers also went to the scene for support. the Manila-based members of the ad- Group, had organized the OIC’s visit allowed to attend the seminar, which Still other participants left to secure their vocacy group would take care of refor- to the Philippines. This was to serve On the second day, at two in the after- The Bridging Leadership led to the GRP-MNLF Peace Working families, fearing that the military and the mulating the roadmap and would pre- as a fact-finding mission to determine noon, he talked with another general. Group’s feeling threatened. They then police might have an armed encounter sent this to the whole group later on. This general accused General Dolorfi- Seminar the problems in Sulu and which pro- allegedly started to spread malicious because of the arrest. The following day, visions in the agreement had not yet no of working for the MNLF. The gen- text messages about General Dolor- the military participants explained why General Dolorfino did not have an eral’s unit heard the radio transmission During the first day of the seminar, been implemented in preparation for fino and the seminar. there was tension after the bombing. easy time drafting the roadmap in of the MNLF saying that the MNLF many problems began to manifest the meeting of the tripartite council Everyone was reassured that it was just Manila. “Our first meeting was a fail- troops were waiting for General Dolor- themselves. Sectors began forming three months later. As soon as the General found out, a matter of miscommunication between ure. We weren’t able to write anything fino before making their move. General their own groups and the way the par- he talked to the group and explained the two parties. because there were so many different Dolorfino explained that he was going ticipants were speaking was highly in- In order to facilitate the meeting of the why they were not allowed to join the ideas. So I thought, I would write it there merely to pick up the MNLF to timidating. Interactions across sectors MNLF with the OIC, the GRP decided seminar. One, civil society did not feel out first, then present it to the Manila ensure that they were going to comply always ended up in debate. Professor Sulu Bridging Leadership to implement a Suspension of Military comfortable with foreigners present group,” General Dolorfino recalled. with the terms set by the military. After Garilao eased the tension by saying, Operations (SUMO). Kilometer 4 in in the seminar. Second, the 1996 Final Advocacy Group and the It was in the second meeting that the a lengthy explanation and some clari- “You cannot achieve anything by de- Jolo was set as the assembly area but Peace Agreement was a sensitive issue. Sulu Roadmap for Peace Manila group was able to finish the the AFP provided some conditions to fications, the other general reluctantly believed General Dolorfino.

5 This NGO mediates and facilitates the resolution of armed conflicts.

6 The Marine was about to have his radio repaired when he heard an explosion. He immediately went to the site and took some pictures because he was with 7 Two years ago, he and other military officers were trained on Bridging Leadership in Davao but there was no follow-up activity afterwards. As a result, the intelligence division. agreements reached during that seminar were not pursued further.

44 45 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

It was late in the afternoon and Gen- detachment, he hoped that the instruc- that the OIC representatives should be After the OIC visit, some people in theories discussed during the training between the MNLF and the AFP. In- eral Dolorfino still had not eaten. He tion had already been relayed by the the ones to go to the MNLF camps. OPAPP urged General Dolorfino to followed. General Dolorfino came next cidents such as kidnappings would be had to go back to Panamao, which was general. It had not. have the two generals relieved in Jolo so to present the proposed Sulu Roadmap addressed by the Joint Task Force Unit an hour away, to see the other MNLF The commander agreed with General that he would be able to proceed with that the BL group members in Manila (AFP-PNP-CSO) and the Joint Action group. He told the other general to By the time he arrived in Mt. Bitan- Dolorfino and the plan was immedi- his work unimpeded. To the surprise of had revised. He gave extensive details Group (MNLF-GRP). advise his detachment in Timbangan ag where the Panamao group was, ately put to action. At that time, the many, General Dolorfino turned down on each of the components of the new to let the MNLF pass and the general the Dolorfino’s vehicles had already other general who had refused access the suggestion. He reasoned that it was roadmap which used the framework of Having groups monitor the resources agreed. However, on the way to Tim- made a U-turn because they had been to the MNLF was panicking because better to have officials who had learned the Final Peace Agreement in 1996. for development interventions, such bangan, he saw a 6x6 truck barricading waiting an entire day. He talked to he realized the implications of his ac- their lesson rather than a new set of as the joint planning and oversight by the road near the Headquarters of the the leader of the group, Ustadz Ma- tions. He instantly became accommo- commanders who might possibly give General Dolorfino admitted that he the AFP and PNP of the funds given 51st Infantry Battalion of the Army in lig, who said, “It is apparent that the dating to General Dolorfino but rath- him the same problem. used to believe that military action to the other sectors to ensure their Barangay Bayug in Timbangan. When military does not want us to pass. We er than lecture him, Gen Dolorfino was the solution to the Sulu problem. proper use, would promote multi-sec- he spoke to the soldiers guarding the know that there is a 6x6 truck block- merely accepted their cooperation. Through the Bitan-ag visit, the first Seeing how the same problem still toral participation and transparency area, they said that their general’s in- ing the road. We are ready for peace. objective of the security component existed after thirty years, however, in the transactions. There were other struction was to not let the MNLF pass. We have our wives and children with The OIC first went to Buansa for the of the roadmap to promote ground he acknowledged the need for a dif- concerns raised such as the inclusion He tried calling the general’s cellphone us and of course, our guns for our Indanan group after which the group stability was achieved. The informal ferent approach. An open forum was of education in the socio-economic but it was not accessible. He then called security. Our wives are even wear- joined the OIC on their trip to Bitan- tri-partite agreement to cease hos- conducted to deal with the concerns program, crimes against Christians in the Southern Command of the AFP ing make-up and are wearing native ag where the Panamao group was. The tilities was similar to the ceasefire of the other participants, to clarify the area, and others, which were dis- and asked if they could contact the dresses. We are ready for peace, but if military could not do anything at this mechanism of the GRP-MNLF. In certain concepts, incorporate sugges- cussed in the dialogues of the different general through the military line. They the military does not want us to pass, point because of the presence of the OIC terms of implementation, however, it tions and continue the ownership of parties. After this, the groups formally did and the general said that he had then we’ll just see each other in war. representatives. In Bitan-ag the military, was somehow different. According to the stakeholders of the roadmap. adopted the Sulu Roadmap. changed his mind and would let the But you are not included there Gen- the OIC, government representatives the new agreement, the civil society MNLF through the next day. eral, you are the exception.” and the MNLF converged in a scene would be part of the local monitoring The group saw that it wanted to go Days after the general meeting, the never before seen. It was quite a sight team. A team was also organized to fa- ahead and establish itself as a link be- pace at which Bridging Leaders set However, the next day would be too General Dolorfino returned to Jolo, ar- to behold: the military and the MNLF, cilitate military operations in or near tween sectors. To better improve the their vision to reality accelerated. On late for the MNLF to go Timbangan. riving at seven in the evening. There he both carrying machine guns, walking the MNLF area to prevent armed con- organizations, they organized them- May 2, 2006, the Area Coordination The other general offered to call Gen- learned that the Indanan group found beside each other toward the MNLF frontations between the military and selves into the BL Advocacy Group Council for Sulu approved and adopt- eral Dolorfino by radio but the call out about what had happened to the camp. During the program in Bitan-ag, the MNLF. This team was necessary Organization in the hope that this ed the Sulu roadmap, and the mem- never came. General Dolorfino grew Panamao group, and to sympathize all commanders and General Dolorfino because armed encounters between would facilitate future meetings be- bers of the committee for the ACC alarmed because it was getting dark with them, they decided not to attend spoke. After the program, all the com- the two groups often occurred when- tween the sectors. The BL Advocacy who were elected mostly came from and the MNLF would not be able to go the meeting. General Dolorfino tried manders, government representatives ever the military went after the Abu Group Organization initially had a the Bridging Leadership Advocacy anywhere as it would be too dangerous. to iron out the situation that night by and the OIC representatives gathered Sayyaf Group (ASG) and the latter hierarchical structure (a president and Group. After the workshop, General There was also the threat of a mis-en- calling and sending messages to vari- for a meeting to talk about the situation hastened to the MNLF camp or near other officers) but eventually it was Dolorfino met separately with some of counter. Adding to his worries was the ous personalities. Due to the low ca- in Sulu. Secretary Jesus Dureza of the the camp. In the process, the MNLF decided that a convener/representa- the committees to help them develop embarrassment that the GRP would be pacity of cellular sites in Sulu, however, OPAPP said it was about time for a ces- became involved because the military tive structure with the groups taking their plans and programs. These plans subject to if the MNLF failed to attend he failed to reach anybody. General sation of hostilities in the province. encroached on their territory. So this turns at becoming the secretariat be and programs were finalized when the the meeting the next day. So General Dolorfino said, “I wasn’t able to sleep team would facilitate the operation of installed. The secretariat staff of Pag- group met again on July 29, 2006. Dolorfino called the commander of the that night because I thought of all the It was decided then that the military the military near or in the camp of the tabangan, Sulu, another project of the AFP Southern Command to explain things that I had done and how they would extend the SUMO indefinitely. MNLF and prevent armed confronta- AIM-Mirant Center, was assigned Agreements on Security the situation. The commander called were possibly wasted in just one day. An informal tripartite agreement was tions between the two forces. the lead secretariat whose role was to the general who had not wanted the I even thought of not doing anything passed to end the hostilities in the train the other secretariats. The security arrangements made to MNLF to pass. That general said he so that the two generals would take the province. The meeting proved to be a Continuing the Dialogue minimize the collateral damage of would call General Dolorfino and in- blame, but I could not do it.” At five in success because the OIC gained an ap- The group discussed the mechanisms military operations were deemed one struct his men to let the MNLF pass. It the morning the next day, he was able preciation of the real problems. They On May 1, 2006, about 90 percent of to bring forward the intended results. of the notable results of the work of was five in the afternoon by then and to contact the commander of the AFP saw the rationale behind the hesita- the original participants met again in There were plans to form joint groups the dialogue group around the Road- still the general had not called. So Gen- Southern Command. He explained tion of the military to allow the MNLF Jolo and was presented the roadmaps. between the GRP, the MNLF and the map document. These arrangements eral Dolorfino decided to resume his the situation and proposed a remedy. through the other day. Somehow, the Prof. Garilao presented the Sulu Road- CSO that would serve as the local were designed around the operations trip to the Panamao group. Along the Thinking it too late to reorganize the cancellation of the initial meeting be- map crafted during the training. A re- monitoring and coordination mecha- against the Abu Sayyaf Group (ASG). way, when he passed another military entire visit of the MNLF, he decided came a blessing in disguise. fresher course on the key concepts and nism for the cessation of hostilities In the process of catching the Abu

46 47 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

Sayyaf in Sulu, one of the problems and there were fewer skirmishes with gress of the dialogue group and, more to curtail its movements and remain mand. While he had permission from initial date of the meeting was set in encountered by the military was the the MNLF. As a consequence, too, the importantly, undertake a dialogue within the agreed containment zones. his superiors to continue his work in October 2006, but was repeatedly post- tendency of the ASG to move closer to incidence of Internally Displaced People among communities, the military, and The civil society and local govern- the Mindanao peace process, his new poned by the Philippine Government. the MNLF camps whenever the Mili- (IDPs) in the areas went down. some members of the MNLF concern- ments were also making sacrifices responsibilities did not allow him to As of February 2007, the schedule of the tary would mount operations against ing the different issues surrounding in continuing to live in a situation spend the same amount of time he meeting had not been finalized. What them. Consequently it would seem Dialogue on Military military operations. General Dolor- of armed conflict. He reiterated that used to with the local groups in Sulu. prevented the tension from boiling over like the Military were moving against fino was able to schedule the attend- this was in the pursuit of a long-term Aside from the decreased presence of was the relationship of General Dolor- the MNLF positions, thereby almost Operations during ance of General Allaga who was then peace, free from bandit groups like General Dolorfino, many of the bri- fino with the MNLF representatives and always resulting in a mis-encounter9 Ramadan Area Commander for the Southern the ASG. The dialogue noticeably im- gade commanders had finished their the MNLF commanders. between the Military and the MNLF. Command, which included the mili- proved after this reframing. tours of duty in the area and, as was the This would leave openings for the Military operations began in September tary forces in Sulu. At the meeting normal practice in the Military, these In February 2007, these tensions fi- ASG to escape and would displace 2006 but continued up to October, the Professor Garilao reviewed the differ- In the end, the group agreed on cer- commanders were transferred to other nally came to a head when General residents who fled from the fighting. beginning of the month of Ramadan10. ent concepts of dialogue and bridging tain points. Civil society and the reli- commands. This meant civil society Dolorfino visited Habier Malik, a top Led by their Muslim religious leaders, leadership, especially for the partici- gious leaders agreed with the Military and the MNLF members of the group commander of the MNLF, in their The security committee had members the communities affected by the ongo- pants who were not part of the origi- that there was a need for continuing had to deal with new commanders who camp in Mt. Bitan-ag. Their meeting affiliated with the political arm of the ing hostilities had two issues regard- nal workshop. Then the community operations even during the month of were unfamiliar with the discussions which took place after that of the ad- MNLF. While they were not the com- ing the continued fighting. The first leaders, religious leaders, and MNLF Ramadan. For its part, the Military and processes that had transpired dur- vocacy group sought to formalize the manders of the armed MNLF forces, has to do with religious significance of leaders began voicing their positions agreed to allow people into the ar- ing their predecessors’ time. ‘blood money’ arrangements made to they had open lines of communica- the month of Ramadan. Saying that no on issues surrounding the ongoing eas of military operations as long as settle the mis-encounter with MNLF tions with those commanders. Gener- blood should be shed during this month, military operations. Most of the peo- there was prior coordination with the The facilitators also noticed an in- forces. Things were going well and al Dolorfino used these connections to the leaders openly advocated the cessa- ple asked if the military operations military units involved. The military crease in the number of “mis-encoun- the arrangements were finalized as broker an agreement with the MNLF tion of all operations during Ramadan. could be suspended during Rama- agreed to refrain from using aerial ters” between the Military and the planned during the visit. However, as commanders around a large military The second was the preparation for Eid’l dan. On the other hand, the military bombing and heavy artillery to limit MNLF forces. This they also attrib- the group was about to leave, Under- operation called Oplan Ultimatum. Fitr, the Muslim celebration marking officials stressed the importance of the encounter areas and the effect on uted to the change in the leadership of secretary Ramon Santos of the OPAPP The agreement was that, during the the end of the month of Ramadan. Be- the ongoing military operations to civilian communities during Rama- the AFP battalions, which meant that remarked that the planned tripar- operation, the MNLF forces would ing one of the most important Muslim the long-term security of the Philip- dan. These agreements were approved the new heads were not part of the tite meeting would be postponed yet withdraw to three designated areas celebrations, it was customary to have pines, as the operations were target- by General Allaga and were published original group that had made the ar- again. This angered Malik who, at first, prior to launching the operation. It a large celebration on this occasion. ing top terrorist personalities wanted in a news article the next day. rangements with the MNLF. prevented the group from leaving until was also agreed that the MNLF forces Many people who had farms within or internationally. The different sectors some clarification was provided about close to the areas where Military opera- would drive away any ASG elements spoke honestly and passionately while The Dialogue Process The bigger number of encounters with the postponement of the meeting. that would try to get into their areas. tions might occur were scared to go to Professor Garilao had to occasionally the MNLF required that General Do- When USEC Santos insisted on leav- The Military agreed to not go into the their farms lest they be identified by the clarify points and make sure people Breaks Down lorfino spend time mediating and co- ing, the situation quickly turned into MNLF areas but were free to hunt the Military as members of the ASG and be understood the different positions of ordinating between the MNLF com- a hostage situation. General Dolorfino The group was convened again in De- ASG outside those designated areas shot. On the other hand, the Military the stakeholders in the dialogue. manders and the government to keep was able to ensure that there would be cember 2006 and February 2007 to without a threat of any mis-encounter. purposely discouraged entry into areas peace. One such encounter happened no fighting between the MNLF forces continue the work and follow up on where military action was likely because As the dialogue proceeded, General in January 2007, where more than 10 and his own security team. the group agreements and plans. How- The agreements were put in force when they wanted to minimize the possibil- Dolorfino tried to summarize the dif- MNLF fighters were killed. The scale of ever, the facilitators found that many ‘Oplan Ultimatum’ was launched on Sep- ity of loss of lives. However, the people ferent opinions by framing the state- the encounter was so large that it had It was a tense two days while the party of the plans were not being done and tember 1 , 2006. There were some diffi- needed to go to their farms to harvest ments as the sacrifices that each stake- to be mediated using ‘blood money’11. was being held at the MNLF camp. that there was a noticeable decrease in culties in coordination but, for the most their produce in preparation for the holder group was making to achieve General Dolorfino and his compan- the enthusiasm of the group. Looking part, the agreements were held. During Eid’l Fitr. peace in Sulu. The Military, for exam- Another point of tension between the ions were treated with respect, taken back, Professor Garilao and the other the initial months of the operation, it was ple, was making sacrifices in terms of groups was the tripartite meeting be- care of, and allowed to use their mo- facilitators saw a few things that had to reported that there was better coordina- A meeting was organized on Sep- the lives of its men. The MNLF was tween the MNLF, the GRP, and the OIC. bile phones to update people on their do with the Military. For one, General tion in the operations to catch the ASG tember 15, 2006 to monitor the pro- making sacrifices in terms of having Agreed upon when the OIC representa- condition while they were in the Dolorfino was reassigned as the com- tives visited the camp in Bitan-ag, the camp. They were just not allowed to manding general of the NCR Com-

9 The Military described a mis-encounter as an unintended skirmish between them and some armed group that they did not intend to engage.

10 (Arabic: month of the Islamic calendar in which participating Muslims do not eat or drink anything from dawn until dusk. Fasting is meant to teach the 11 ‘Blood money’ is a local practice where the aggrieved party receives a commensurate amount as reparation. person patience, sacrifice and humility.

48 49 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

leave, however. Meanwhile, govern- stakeholders and made it very difficult The MNLF claimed that the continued those who died were ASG members. Furthermore, because of the disillu- manding general of the AFP forces in ment representatives were trying to to have just one account of the reasons detention of its chairman was a breach Several military personnel were also sionment of a big part of the MNLF Sulu Maj. General Aleo did not sign negotiate the release of the party while behind the resumption of the armed of the peace agreement. killed. This incident stood out because leadership and members over the pre- the Sulu Road Map for Peace. Many the local military commanders were conflict. Among other things, there it took place when there were supposed vious government agreements, the viewed his mistrust of the MNLF as also preparing for the possibility of was no longer a venue for the views to In between the 2001 incident and to be security arrangements between agreements started through the BL something that the BL process did not military action to rescue the party. The be discussed. The information gathered 2007, major and minor armed skir- the MNLF armed forces through Habi- process also suffered. Many said that help address. In late 2006, the AFP community was concerned because presented the accounts of the different mishes between the MNLF and er Malik and the AFP through Maj. the BL was doomed from the start had a new set of ground command- the scale of military force required to stakeholders about the resumption of the military took place. The MNLF General Ben Dolorfino signifying the since the process called for the sincer- ers in Sulu, including the overall com- attack a major MNLF position would the fighting and why it happened12. claimed that these incidents showed cessation of hostilities for the purpose ity of all the stakeholders. The MNLF mander of Task Force Comet. have to be very large and the collateral the government’s insincerity toward of trust building. maintained that the AFP had no real damage could be great. 1. The MNLF Perspective pursuing lasting peace in Mindanao, intention to pursue peace in Sulu. Like a self-fulfilling prophecy, the of- particularly Sulu. Most of these skir- There were also several other incidents ficers who underwent the BL process The situation was eventually resolved In November 2001, MNLF forces in mishes pertained to the continued in- of AFP incursions into MNLF territories 2. The Military Perspective and were part of the security arrange- peacefully, with Malik finally accept- Sulu launched a massive attack on the cursion of the AFP into MNLF territo- while in pursuit of ASG elements, partic- ments were pulled out of Sulu. During ing the word of government repre- AFP Sulu Headquarters. This incident ries, allegedly in the guise of pursuing ularly in the camp of MNLF State Chair- The Armed Forces of the Philippines the time of the AFP officers’ reshuf- sentatives that the meeting would be took place near the capital municipal- elements of the Abu Sayyaf Group. man Khaid Ajibon in Marang, Indanan. had always been part of the Moro re- fling and with the coming of new AFP scheduled as soon as possible. It is also ity of Jolo. It left scores wounded and Again these were allegedly conducted in bellion history of Sulu. In the 1970’s, units such as the Army’s elite Scout believed that Malik finally began to lis- dead, while thousands had to evacuate The 2005 MNLF offensive led by violation of the security arrangements. the AFP was a major player in the in- Rangers and Special Forces relative ten to General Dolorfino who repeat- the populated areas. Habier Malik against the AFP was in The MNLF suspected that these alleged famous 1974 bombing of Jolo. Within to the intensified manhunt for Abu edly said that an armed confrontation response to the murder of an MNLF mis-encounters were intentional on the this context and given the closeness Sayyaf members and alleged foreign would be imminent if the situation According to the MNLF, the main rea- commander and his family in Kapuk part of the AFP since the military ground of majority of the people of Sulu with terrorists, the Road Map and the BL persisted. Should that happen, it would son for the 2001 incident was the pass- Pungol, Maimbung. Elements of the commanders were aware of the bounda- the MNLF forces, the AFP had always process hit a snag. not serve the purpose of the MNLF. ing of the law expanding the ARMM Philippine army allegedly perpetrated ries of MNLF territories as set in the so- been viewed with suspicion. As such Act by Congress, without consulting the killing of two MNLF members, called security arrangements. The motive the AFP leadership and personnel in The AFP’s General Rafael claimed Finally, the party was allowed to leave the MNLF leadership. The govern- one woman and two children. The of the AFP, so the MNLF alleged, was Sulu always had to assume the posi- that they were extending the hand of the MNLF camp peacefully, but there ment countered that the passing of the resulting MNLF-AFP clash saw close that the military was “aching for a fight tion of trying to win the trust of the dialogue to the MNLF leadership. To would be ramifications on the part of ARMM expansion and its being sub- to 10,000 families evacuating their with the MNLF” while using the Abu locals, while maintaining its policy of some extent the security arrangements General Dolorfino. After the hostage mitted to a plebiscite were in accord- homes in Panamao, Talipao, and other Sayyaf as a convenient excuse. relentlessly pursuing the Abu Sayyaf forged during the peak of the BL en- situation, the military leadership no ance to the 1996 Peace Agreement. municipalities in Sulu. It hit the news and other lawless elements. gagement were honored and contin- longer allowed him to get involved in The 2001 incident which took place in especially when MNLF mortar fire As far as the MNLF was concerned, ued to be honored by the AFP. In an the affairs with the MNLF. Some sourc- the last months of the ARMM gover- killed Colonel Dennis Villanueva of they had been too accommodating According to sources, the AFP’s main earlier military operation against the es also said that the hostage incident norship of Misuari led government to the Philippine Army. The 2005 major with the government. Many times strategy in combating the Abu Sayyaf Abu Sayyaf, the AFP operated in close soured the relationship between the arrest Misuari, alleging that he mas- clash led to the AFP’s occupation of they cooperated with the AFP during took in the form of intensive civic- coordination with the MNLF, par- government and the MNLF, and made terminded the said MNLF offensive the MNLF camp in Bitan-ag, Panamo. operations against the ASG simply by military operations achieved by way ticularly in Buansa, Indanan where a the government less inclined to pursue against the AFP forces. After the brief occupation of the camp denying ASG elements safe haven in of development projects and civic ac- major MNLF camp was also situated. the peace process with the MNLF. by AFP forces, the MNLF moved in. MNLF camps. The MNLF also claimed tivities. Military commanders shared In August 2006 General Dolorfino, The MNLF for its part said that the to have exercised extreme patience in how people in the communities ap- with some ground commanders, had The Fighting Resumes AFP and the government were not There were other such incidents like the the face of the continued government proached them for assistance, rang- clearly established the demarcation sincere in pursuing the 1996 Final killing of MNLF commander Kaddam default insofar as the long pending tri- ing from water projects to the repair line where the military could conduct The fighting officially resumed on April Peace Agreement as manifested by and six civilians in Timpo, Patikul. It partite conference was concerned. of school chairs. Thus when the BL its operations without encroaching on 13, 2007 with Habier Malik launching the continued postponement of the happened in January 2007 when a mili- process took place, their initial pes- MNLF territory. The operations lasted attacks on military and government GRP-OIC-MNLF Tripartite meeting tary patrol chanced upon a meeting of The tripartite conference was critical to simism was dispelled. Many military several months. positions in Sulu before going into hid- that was supposed to review the im- MNLF regulars and engaged them in the MNLF cause as it would provide a commanders expressed optimism ing. The attacks again polarized the plementation of the peace agreement. a firefight. The AFP later reported that venue where they could point out to the at the whole prospect of continuing However, the April offensive of the AFP GRP the many peace agreement provi- dialogue with the local MNLF lead- against the Abu Sayyaf conducted in al- sions it allegedly violated. In addition, ers and communities. However not most the same area in the municipality of the continued detention of Nur Misuari all military officers during the time Indanan, happened differently. Initially, 12 The views of the Local Government and of the Police are not included because the original representatives of these groups were no longer in position and remained a sore point in the MNLF-GRP thatthe BL process took place were the AFP gave ample notice to the MNLF were unavailable for official comment. The Local Government representatives did not win in the 2007 elections and the police had been reassigned. relationship. open to dialogue. The overall com- state chairman Khaid Ajibon regarding

50 51 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

the impending operations. According 3. The Civil Society Perspective Abu Sayyaf members, when in fact Among other things, the group dis- dialogue remained, most agreed that a distinct role in the process and that to sources Khaid Ajibon’s aides were in most victims were actually farmers cussed how the stakeholders were able it would follow a route different from each person or organization has constant contact with Colonel Ramon, The Sulu CSOs were characterized as and forest product gatherers. to convene and organize themselves that which the Sulu Roadmap took. their own pool of resources that they the deputy commander of Task Force being organizationally weak, having into the Bridging Leadership Advo- can contribute in order to solve to prob- Comet. However, it was alleged that the limited program implementation ca- What shook the CSO sector was the cacy Group that would work on the Conclusion lem. No one organization has all the military had encroached into the MNLF pacity and having inadequate skills in fatal shooting of a child by members Sulu Roadmap. The group was able to resources needed. That is why each sec- camp during the operation, which pre- engaging the AFP, MNLF and LGUs of the Army’s Scout Rangers in March arrive at informal agreements to keep In the end, even if the prospects were tor’s noncooperation would jeopardize cipitated the gun battle between the two toward a lasting peace and sustained 2007 in Tagbak, Indanan. The boy was peace, but these agreements were not bleak, the group agreed that the Sulu resolution of the problem and what is forces. Two fighters each from both sides development in Sulu. However, these walking home from his aunt’s house formalized because of many reasons. Roadmap process provided an ex- needed is cooperation and collabora- were killed. The same incident led to the CSOs also viewed themselves as the where he watched the evening TV These informal agreements were not ample of how peace in Sulu could be tion. The process also opened up new MNLF offensive led by Habier Malik voice of the civil sector that was the shows, when Army troops accosted enough to change the long-term situ- achieved in a sustainable way. The paths of communication and estab- against the forces of the AFP. It started most affected by the ongoing conflict him. Fearing the soldiers, the boy start- ation, however. Furthermore, the conditions might not be conducive lished crucial relationships needed that on April 13, 2007 when security arrange- between the AFP and MNLF. ed to run, thereby prompting a soldier group discussed how factors external at the moment, but the possibility of could possibly sustain development ments were broken. While the AFP lead- to shoot the boy and kill him instantly. to the dialogue process complicated it. stakeholders’ coming together re- initiatives. One of the local organizers of ership claimed to have open communi- With this in mind, the Sulu CSOs who His wounded cousin was taken into mained. The stakeholders and facilita- the seminar stated,“The seminar result- cations with some MNLF commanders affiliated themselves with the Pagta- custody by the MNLF’s Khaid Ajibon. The group discussed the future pros- tors of the workshop came out of the ed in a change in relationship between on the ground, there was an unspoken bangan BaSulTa consortium made in- It turned out that the victim was a pects of the dialogue process after talk- process with a better understanding sectors. Now stakeholders have access to belief within the ranks of the AFP that roads in engaging the AFP leadership. grandson of the MNLF state chairman. ing about the insights gleaned. The of what this kind of work entailed and each other and are now able to discuss some MNLF commanders were helping To date, the AFP had been consulting A CSO leader facilitated the dialogue relationships developed during the would be better prepared to undertake things. In the past, that was unheard of.” the Abu Sayyaf. The MNLF leadership with the CSOs on how to proceed with between the AFP and the victims’ fam- process remained, as evidenced by the a dialogue when the conditions im- denied these allegations. the civic military projects. The MNLF, ily, and the matter was settled. Among quality of the conversations during the proved. Professor Garilao expressed However, as he reflected on the process on the other hand, maintained close the ranks of the CSOs there remained workshop. However, the group was his insight on the value of this process, in Sulu, it became clear to General Do- The military acknowledged that one ties with the CSO leaders. There was a general feeling of mistrust with the very much aware of the differences in lorfino that it will still take a long time Abu Sayyaf tactic was to camp near the a serious discussion among the ranks AFP, but this did not stop the leaders the conditions at present. General Do- “Whatever it was, the Sulu Roadmap before the problem can be fully resolved. boundary of the MNLF camps so as to of the PB-affiliated CSOs on talking from engaging the AFP leadership in lorfino was still not allowed to involve process provided one year of peace He recognized that there are still a lot of draw the MNLF and AFP in an open with Habier Malik. However, the word Sulu in a dialogue. himself in MNLF affairs while the for the people in Sulu. It ended after things that he has to learn. His continu- war. The April incident resulted in an was that the MNLF armed wing was OPAPP was still not actively pursuing a year but the economic and social ous involvement in the peace process and offensive’s being launched by Habier closed to the idea of dialogue until the The Sulu Roadmap dialogue with the MNLF. Also, thead- effects, even if they were difficult to bridging leadership serves as his training Malik and some MNLF commanders tripartite conference was finally held. ministration that supported the Sulu ground in his continuing work to build losure orkshop quantify, were possibly very great.” against AFP forces. The AFP leader- This left the CSO leaders to hold off in C W Roadmap process had been replaced peace. His sentiments on the process can ship in Sulu would like to note that it engaging the MNLF of Habier Malik by a different set of elected provincial be summed up in his statement, The one-day workshop provided General Dolorfino also believed that showed its willingness to re-engage and Khaid Ajibon. government officials. A new governor many insights on what the group went despite the setbacks, the process in the MNLF in a dialogue using the BL won in the 2007 election and seemed to “All of us are aware that the problem through in the Sulu Roadmap process. Sulu was not a waste. The stakehold- process. Bridging Leadership training In the meantime there was a grow- be distancing himself from the Road- cannot be immediately resolved. There The experience showed how a multi- ers learned a lot from the process. For should have been conducted in Febru- ing concern in the CSO sector about map process. Sources believed that are still different areas that need to be stakeholder could address a complex a short time, prejudices were set aside ary 2007, but the AFP’s preparations for the mounting reports on the human his stance stemmed from the fact that addressed. But it is good that every- situation, just as it highlighted the and the process of healing began. They the national elections and increased op- rights violations of the military. There the initiative was very clearly identi- one realized that they need to act now challenges inherent to working on learned that everybody who is part of erations against the Abu Sayyaf put the were accounts of civilians killed by the fied with the previous administration. to start the healing and the progress. such complex issues like peace. the problem is also part of the solu- planned BL session in the back burner. military on suspicion that they were While the possibility of pursuing the tion. They learned that everyone has There is still hope for Sulu.”

52 53 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

The mere mention of Maguindanao elicits fear. The province is At first, Edjawan found it hard to be- images of that incident remain etched in army and the general headquarters of lieve that this is possible at all. How- Edjawan’s memory: the Armed Forces of the Philippines. one of the most conflict-ridden areas in the Autonomous Region ever, he was to find out later that it can Edjawan says that his assignments in of Muslim Mindanao (ARMM). Maguindanao recently figured be doneHe entered the Philippine Mil- “Encounter nun at may mga civilian the Intelligence and Audit and Inspec- as the place where the most heinous political crime in modern itary Academy (PMA) in 1982 to pur- na nasa area. Tapos nung binomba tion departments contributed to his history, the Maguindanao massacre1, happened. The massacre, sue his dream of becoming a soldier. ng NPA yung community, diretsong high regard for integrity in his work. He says that being a cadet does not tinamaan yung bahay nung bata. His experiences – both in the field and which claimed the lives of 57 people – including Muslim women only entail extensive training in com- At ganon na lang yun. Nakita ko na in the formal office space – shaped the and 30 journalists – caught international attention and acquired bat fighting, it also includes manage- lang yung batang babae na putol na managerial side of his leadership and for the Philippines the infamy of being the most dangerous place rial and leadership-character training ang isang kamay… Naisip ko noon, his character, which was about to be in the PMA standards of courage, loy- paano na ang future ng batang yun? tested in his next assignment. in the world for journalists. Many may find it hard to believe that alty, and integrity. Edjawan cites the Ang bata-bata nya pa tapos naputulan peace and security can still prevail in the area, but those living in honor system that says “You should sya nang kamay eh wala naman syang Test of Character the areas of Matanog and Parang find that there is hope, as dif- not cheat, lie, or tolerate those who do” kasalanan (There was an encounter ferent groups work together for peace and development through as one of the most important values he and there were civilians in the area. His stint as Battalion Commander acquired from the PMA. He considers When the NPA bombed the commu- the leadership of Lt. Col. Gavin Edjawan. of the 51st Infantry Battalion (IB) his graduation from the Academy as nity, the house where the child was in Basilan and Lanao del Sur is what one of his greatest accomplishments, took a direct hit. I saw the little girl Edjawan considers as the “most try- Passing through Narciso Ramos High- “open-minded man”, never physically as it was where his personal leadership with her hand blasted off… I thought ing times” in his leadership journey. Lt. Col. Gavin way near Langkong Junction on the punished him for any wrongdoing he journey began.2 that time, what will her future be like? He formally assumed the position on way to Camp Iranun, Edjawan recalls committed when he was a boy. He in- She is so young and has lost her hand, December 1, 2006 at a time when the Edjawan there was nothing in the area except fluenced his outlook and inculcated in After graduating from PMA, Edjawan but she is innocent)… . I realized that peace process between the GRP and for tall grass on unused lands when him that every person must be treated was commissioned into the regular force these people are not collateral damage Battalion Commander, the Moro Islamic Liberation Front he first took that road in February as humanely as possible. He remem- of the Philippine Army (PA) where he in battle. They have lives to live.” (MILF) was on-going3. Philippine Army 2008. But after only a year, the land bers his father telling him to “treat exercised leadership in his various as- is planted with corn and other crops, other people with compassion”. signments as Platoon Leader, Company The experience shaped Edjawan’s view But later that month, battles occurred and young children play freely by the Commander, and Battalion Command- of the war. He learned that on-the- between the government forces and roadside. He considers this a manifes- He was not influenced by anyone in er. Edjawan recalls his first assignment ground battles demand for a leader the classified armed lawless group of tation of how peace enables residents his family to enter the Armed Forces. in Aklan as a Second Lieutenant pursu- to be a “responsible soldier who ob- Amil Mingkong in Sumipsip, Basilan. to stay in a permanent place and in- What persuaded him to enter the ser- ing some forces of the National People’s serves social responsibility” and who The MILF claimed that the lawless vest on sustainable farming. vice was the thrill he found in military Army (NPA)3. Edjawan recalls that the avoid casualties as much as possible. group attacked by the military was life after reading books on the topic in NPA groups were staying in a commu- He calls it, “fighting to win the peace”. part of their bona fide membership nity that was directly affected by armed Personal Background his high school years at the University and accused the military of dishonor- of Sto. Tomas. He was most interested encounters with the NPA on the bound- Aside from field positions, Edjawan ing the primacy of the peace process. was designated chief of various of- Edjawan views the world as composed in the journeys and battle strategies of ary of Aklan and Antique, In one of the The conflict would have escalated into fices in brigade and division levels, of “interdependent human beings in Napoleon Bonaparte. Today, he con- houses lived a “one-year old mestiza full-blown armed encounters had not as well as in the headquarters of the superficial groupings,” as tribes and tinues to read war-related books, and girl” who was caught in crossfire. The Edjawan initiated dialogues with the nationalities cause a fundamental of all the insights he has gathered, Ed- divide that hinders people from re- jawan is most stricken, and keeps on going back to this part of Sun Tzu’s specting each other, and from valuing 2 Aside from the PMA, Edjawan was also educated at the University of Malaya, Malaysia where he earned a diploma in Strategy and Defence Studies and other people’s rights. He has believed Art of War: “Therefore one hundred underwent military schooling under the Malaysian Armed Forces Staff College in 2004. victories in one hundred battles is not This write-up was written in this since he was a young boy liv- the most skillful. Seizing the enemy 3 The New People’s Army (NPA) is the armed wing of the Communist Party of the Philippines. The communist movement has been actively operating in the by Marcia Czarina Corazon ing in a peaceful environment. His rural areas and key cities all over the country for more than 40 years. without fighting is the most skillful.” Medina, under the supervi- father, whom Edjawan describes as an 4 The Moro Islamic Liberation Front (MILF) is one of the two liberation movements for the Bangsamoro people in Mindanao. The first group is the Moro sion of Mr. Philip Dy and National Liberation Front (MNLF), headed by Nur Misuari, which emerged during the height of Martial Law in the 1970s. When MNLF agreed to negotiations with Prof. Nieves Confesor of the the Philippine government regarding the formation of the Autonomous Region of Muslim Mindanao, among other political differences, Salamat Hashim and his 1 On November 23, 2009, a convoy of 57 people was on its way to file the certificate of candidacy of AIM Team Energy Center for group within the MNLF formed a separate entity, now known as the MILF. In 2008, a Memorandum of Agreement on Ancestral Domains (MOA-AD) which sought Ismael Mangudadatu for governor of Maguindanao. They were attacked and brutally murdered – all of the to grant land ownership and independence to local groups in Mindanao was declared null and unconstitutional by the Supreme Court which led to the non-signing Bridging Leadership. members ofthe convoy including journalists and civilian women. The suspects from the rival Ampatuan clan of the MOA-AD. In December 2009, the MILF resumed peace talks with the Philippine government in Kuala Lumpur Malaysia. are still under trial.

54 55 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

MILF leaders. He sought the involve- mosque for a supposed talk. The lieu- during the hostage-taking. Regardless Edjawan said that the negotiations he Since February 23, 2008, Edjawan has More significantly, Edjawan’s area cov- ment of MILF spokesperson Satar tenant left the rest of the squad and of the criticism, he viewed his deci- took part in tested his character and been assigned as the Commander of ers Camp Iranun, the military camp in Alih, and after a series of talks, the their armored vehicle behind and en- sion as honorable and a reflection of have enabled him to his job as a peace- the 37th IB stationed in Camp Iranun, the former Camp Abubakr. Abubakr tension diffused. tered the mosque with four of his men. his credibility. He said, keeper in the area better: Sitio. Bombaran, Barangay Tugaig had been the primary stronghold However, upon entering the mosque, Barira, Shariff Kabunsuan. of the MILF until the government In February 2007, Edjawan stood as ne- instead of having the talk as promised, “I opted for the release of my “…The people I worked with trust forces gained control of the camp in gotiator between two conflicting fami- the five soldiers were held captive. men through negotiations, me, and that definitely helped in Area and Divide the all-out war launched by former lies in Pualas, Lanao del Sur. There had avoided [the] escalation of the my succeeding partnerships with President Joseph Estrada in 2000. His been armed encounters between the When Edjawan consulted his superi- conflict, thus preventing civilian the groups in my area, even the When Edjawan was assigned in the 37th area of operation is also the site of clans that lasted for two days until Ed- ors, no attack order was given. He said, and military casualties, and still MILF. Trust is essential in build- IB, Shariff Kabunsuan was in the pro- the two present political seats of the jawan engaged them in a series of talks. followed command responsibil- ing a partnership, and I believe cess of establishing itself as a province MILF: Camp Darapanan, and parts He brought in the talks other parties to “They gave me no explicit or- ity… . It was the greatest trial I enemies can be good enemies. independent of Maguindanao under of Cararao Complex, the mountain intervene such as the local government der to attack. Sabi nila, bahala faced in my life. Ipagmamalaki Yung may respeto kahit magkala- the Muslim Mindanao Autonomy Act stronghold of the MILF. In the post- 5 officials, local leaders, and the ulama na daw ako (They said, I can ko yun kahit pa na-relieve ako ban (Respect can exist even if you No. 201. The creation of Shariff Kabun- conflict situation, the area continues for a collective effort to end the fighting. decide), that I use my best judg- (Even if I was relieved from my are enemies). It’s not a secret that suan province was the result of a refer- to be threatened by security problems Both families were convinced to cease ment. And because I respect the post, I will always be proud of some of these groups also want endum held in October 2006 which was of rebellion and lawlessness, including fighting for three months to give way to primacy of the peace process, it)… . If I were in the same situa- development to happen... . And later ratified by an affirmative majority. rido or clan disputes. negotiations between the leaders of both I decided to negotiate with the tion again, I would definitely do for the good of those they care However, in July 2008, the Supreme families. With this experience, Edjawan MILF… . But if I were given a the same thing.” about, and to prevent the loss of Court declared the creation of the prov- The historical context of the camp be- says, “Conflict is not that simple, but direct order to attack, I would. lives, somehow, they might be ince of Shariff Kabunsuan void and came significant to Edjawan in June you can start somewhere.” It was then That’s what I am supposed to do, At the start of the negotiations, the able to work with us.” argued that only the Congress has the 2009, when armed conflict erupted in that he realized that collaborative efforts follow orders from higher-ups. MILF were hostile and were using the power to create legislative districts. areas of Lanao after the MOA-AD was among able parties could help make the But they gave me the option to hostages to block the movement of the After being relieved from the 51st IB, declared unconstitutional.8 Edjawan most heated conflicts subside. choose. I chose to save my men. military. He said that the members of Edjawan was assigned Executive Officer The time Edjawan spent as Batallion received an intelligence report that the That was the mission I would not the MILF felt that the dialogue was of the 102nd Brigade based in Ipil, Zam- Commander coincided with the long MILF would attack the camp to recover But perhaps the most challenging compromise.” meant to deceive them, so Edjawan boanga. His assignment was to manage process of Shariff Kabunsuan’s appeal Abubakr, so he immediately strength- situation Edjawan has experienced is chose to negotiate in a mosque de- of the operations of the battalion and to to be recognized as independent prov- ened the camp’s defense. Some areas of the hostage-taking of five of his men Edjawan negotiated with the MILF spite the fact that his men had been follow directives on counter-insurgency ince. However, in January 2009, the the camp were bombed by MILF forces in Lumba Bayabao, Lanao del Sur. In group through various intermediaries tricked into capture the first time they campaigns. When Italian missionary Supreme Court reaffirmed its earlier first on June 12, destroying a tower in March 2007, a group of alleged MILF to facilitate the safe release of his men. were invited to enter the mosque. And Fr. Giancarlo Bossi was kidnapped in ruling and rendered Shariff Kabun- the front area in the camp, and then on members under Commander Mer- He tapped the local police and govern- since no such thing happened, the June 2007, Edjawan took charge of the suan as again part of Maguindanao.7 June 25 with an RPG round, fortunate- cury raided and burned the house of ment officials in the area and members MILF learned to trust the sincerity of foreign journalists and their visits in the ly, destroying only a toilet. Edjawan a Commander of the Delta Force in of the Local and International Monitor- Edjawan and his men to proceed with kidnap site. He also led a Scout Ranger Edjawan’s area of operations covers responded to the threat by activating Brgy. Taluan. Because of this, Edjawan ing Teams of the peace process. On the the negotiation. Edjawan said that be- company which gathered intelligence the six municipalities of Barira, Bul- patrol bases and was able to secure the ordered some of his men to investigate same day, Edjawan’s men were released. cause of an earlier successful negotia- on Bossi’s whereabouts. Edjawan said don, Matanog, Parang, Sultan Mastu- camp within the day. The following on the event and to establish blocking- Their firearms and personal belongings tion with the MILF, he was able to gain he continued fulfilling his duty as a ra, and Sultan Kudarat, covering a day, June 26, Edjawan called his bri- battle positions along the road leading were returned the following day. their respect and trust. soldier during this time while pursu- land area of 207,612 hectares. The en- gade commander, Barira Maguindanao 6 to the barangay . Although they re- ing the community outreach programs tire area has 114 barangays and a total Mayor Alex Tomawis, and the General covered some weapons from the al- Despite the success of the negotia- Through this experience, Edjawan and medical missions of the military in population of 349,906 in 2007. Eighty Headquarters Base commander to start leged MILF group during the opera- tions, Edjawan received intense criti- affirmed that the use of dialogue -de villages in Zamboanga. These activities percent of the population is Muslim peace negotiations with the MILF. The tion, Edjawan learned that five of his cism from some military officers and pends on the situation, and that de- were done in partnership with the local and 20% Christian. talks lasted until August 2009, and no men were taken hostage by the group was removed from his post as com- cisions should be based on a greater government units. attacks have occurred since then. after one of the lead soldiers was asked mander of the 51st IB. But he has no consensus and not merely on the pow- by the group’s commander to enter a regrets about the decision he made er that one wields.

7 For more information, refer to “SC rules Shariff Kabunsuan no more” in the Philippine Daily Inquirer,http://newsinfo.inquirer.net/inquirerheadlines/ nation/view/20090111-182653/SC-rules-Shariff-Kabunsuan-is-no-more. 5 Ulama is a group of Muslim religious leaders and scholars who are considered the equivalent of Christian bishops in the Islamic religious hierarchy. 8 Several bombings have been reported following the Supreme Court’s rejection and declaration of unconstitutionality of the Memorandum of Agreement on the Ancestral Domains (MOA-AD), which aimed to pursue the independence of areas in Mindanao as claimed to be ancestral domains by members of the nego- 6 Village. tiating panel from the MILF.

56 57 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

The incident was a “defining moment” let the people believe that indeed they Edjawan said that he could not build kaya ko na silang kausapin dahil “emergency text” system, the initia- For both the PPDCC and MPDCC, in his stint as Battalion Commander. are “soldiers of the people”. The pro- institutional arrangements without sa kanya (Col Edjawan tries to be tives of the local government, people’s after the initial meetings that set the Edjawan said, gram is still ongoing, with eight more establishing good, trusting, and last- one of use, to help us… . I have organizations, foreign-funded pro- vision and mission, the core groups barangays added to the list of immer- ing relationships between him and met many military officers since jects, religious groups, and the mili- underwent a series of capacity-build- “Nung dumating ako sa Camp sion sites in 2008. the stakeholders, and among the Martial Law, but he is different… tary were disjointed. But Edjawan saw ing workshops such as basic organi- Iranun, dinatnan ko na yung stakeholders themselves. However, he . Before, when I meet military of- an opportunity for unification espe- zational leadership, financial manage- (When I came to Camp Iranun, All this work enabled Edjawan to be was aware that he possessed none of ficers, I would keep my feelings cially that, “they can provide for each ment, and maintenance technician I received the) general direc- accepted in the Bridging Leadership the traditional leadership capital that to myself, but now, because of other’s needs”. According to Edjawan, training. Edjawan sought the support tion of putting primacy in the Fellows Program (BLFP) of the AIM- would enable him to engage in pos- him, I can find it in myself to talk of Tabang Ako Siyap ko Bangsa Iranun peace process. We had to follow Team Energy Center for Bridging So- sible partnerships with people in the to them).” “When I came in, I came to see that saya ko Kalilintad ago Kapamagayon through the peace process… . cietal Divides.9 area. He neither occupied a govern- the LGU was looking for partnerships, Inc. (TASBIKKA) for the community But it becomes difficult at times ment position that would enable him Edjawan does not claim sole credit and that was important because they organizing programs. like that when identified MILF BL Approaches to Peace to issue directives to agencies and de- for the harmonious relationships es- can provide funds. NGOs were also or lawless groups attack us. But partments nor was he a native of the tablished by the military with the looking for beneficiaries. So we start- Edjawan says he was acquainted with we were able to do it… . And it and Development area that would have allowed him to stakeholders. He cites his predecessor ed building the PPDCCs to bridge the TASBIKKA during one of hydroplant helped me realize that keeping lead being “one of them”. He therefore in the area who built an “emergency anonymities. It would put all efforts ground-breaking activities he at- Setting up New Institutional the peace in the area meant go- banked on his leadership credentials text” system that enabled citizens together. PPDCC builds the credibili- tended in Bulbong in Parang, Magu- Arrangements ing into development. Peace and as a military officer and renewed the from the barangay to directly report ty of the LGUs since they are financing indanao. The hydroplant was funded development efforts have to be military’s relationship with people on incidents to the military for quick the projects and go to the barangays… by foreign-funded, but during the first At the start of his Bridging Leadership both given attention.” the ground. response. However, despite the open- There are also many intangible things parts of its operations, the community (BL) work, Edjawan took into account ness of the military to accommodate built along the way. The LGUs work was not able to manage and maintain the rotation of military officers assigned When he was assigned to the area, Even if Maguindanao is conflict-rid- the immediate concerns of the people, with all sectors now. Lahat sila nagsu- the hydroplant’s operations. Hence in different areas of responsibility. This Edjawan reinvented the Special Advo- den, most of the impressions of the the system did not become sustainable suportahan at involved. (They all sup- TASBIKKA became involved in train- means that he would not be assigned in cacy on Livelihood and Advancement people on the military stems from because the response mechanism was port each other and are involved in all ing the community to organize them- Maguindanao for a long time. Because of Muslims or SALA’AM program, their experience of Martial Law in the not collaborative. The military ended activities.)” selves. Edjawan says, “Nagulat ako of this, he sought to establish new insti- which is part of the Civil Military Op- time of President Ferdinand Marcos, up responding to each report instead noon. Sabi kasi nila sa akin walang tutional arrangements that can operate erations approach of the military. Un- during which the military was accused of working with other institutions to The groups that Edjawan mentioned NGOs sa area. Meron pala. (I was and continue the peace and develop- der this program, soldiers are assigned of countless human rights abuses. Ed- address immediate concerns, which became part of the PDCC core groups. surprised back then. I was told there ment orientation within the IB even for immersion with the people on the jawan’s initiative to dialogue with the resulted in difficulties in the manage- The core group members attest to Ed- were no NGOs in the area. Apparently after the duration of his assignment. barangay level for a minimum of 45 groups in the grassroots, even those ment of time and resources on the part jawan’s role in building their relation- there was.) So when we needed com- days. While they are there, soldiers who were traditionally considered of the military. However, the project ships. They said that Edjawan’s pri- munity organizing training for our He initiated the formation of the Parang participate in livelihood and empow- “enemies”, contributed significantly in paved the way for Edjawan to come in mary contribution was to bridge the programs in Parang, I thought of part- Peace and Development Convergence erment projects of the people. In the initially building trust that allowed the and continue the trust-building pro- organizations together into one group nering with them.” Center (PPDCC) and the Matanog Peace process, the soldiers understand the stakeholders to come together. As the cess with the people. that has constant communication and and Development Convergence Center people more, while the people learn leader of the MNLF Camp in Ragisi paved the way for more collaborative According to one of TASBIKKA’s of- (MPDCC). PPDCC was launched in Au- to trust the soldiers. “Baka kasi isipin said, Edjawan revived the emergency text activities. ficers, Edjwan and Mayor Abo ap- gust 2008, before the formal MOA-sign- ng mga tao wala kaming ginagawa o system, but instead of being a sole proached him to partner for the PP- ing by the members in September 2008. takot kaming makisama sa kanila. “[Si Col. Edjawan] mapagkaisa, military effort, he housed the system Each of the PDCCs from Parang and DCC. He recalled: Meanwhile, MPDCC was launched in Kailangan nasa front line kami palagi nakikipagtulungan… . Marami within the Peace and Development Matanog actively involves local chief the third quarter of 2009. The activities (We don’t want the people to think na akong nakilalang military Convergence Centers. These centers executives (LCE), i.e., the mayor from “Sabi nila kung pwede daw ba- of both groups focused on empowering that we are not doing anything, or that simula pa noong Martial Law, are composed of key representatives Parang and the vice-mayor from Ma- baan yung costs para makatulong the citizens, and in the process address- we are afraid to relate to them. We al- pero iba sya… Dati [sa ibang of different sectors in the area, and tanog. The local government units sa grupo, dahil kapag walang ing the key issues that the stakeholders ways have to be on the front line),” he mga officers] tinatago ko lang most significantly, the local govern- (LGUs) are able to facilitate resources training yung mga nasa organ- identified themselves. said. He hopes that the program will ang nasa loob ko, pero ngayon ment unit (LGU), whose involvement to fund and support the PDCCs’ ac- isasyon, mahihirapan sila sa mga had not been fully engaged in the pre- tivities. Furthermore, Edjawan said gagawin nila. Syempre pumayag vious emergency text system model. that their participation gives a great- kami, kasi ganon naman talaga er chance for the system to continue ang gusto namin. Yung matuto 9 The program covers a one-and-a-half-year of intensive training, mentoring, and application geared towards increasing the capacity of selected leaders to address their selected societal divide. Fellows learn to improve their ability to identify and understand a problem and its complexity, and develop a collaborative Even if the preliminary grounds for even after he is re-assigned elsewhere. ang mga organisasyon na mag- response to address the problems. The selected leaders are then able to induce change within the context of their involvement. partnerships were set during the handle ng operations nila. (Ed-

58 59 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

jawan and Mayor Abo asked strictly, as he is used to in the military. diers underwent immersion in differ- Parang; Sitio Budakan in Nituan, Pa- 6,390 seeds were planted from March tree-planting and MEDCAPs has had us if we could lower down our He could not command the stake- ent areas in Sultan Kudarat, for three rang; and Sitio Bugasan Norte in Ma- to August 2009 alone. a tangible and positive impact on the professional fee so we can help holders to follow orders, unlike what months each. Aside from the main tanog. They built roads in East and relationships among the military, the the group, because if the organi- he can do within the military struc- immersion component, the SALA’AM West Nabalawag Crossing. These were The partnership with MINRICO was PDCC members, and the stakeholders zation members won’t receive ture. However, Edjawan said, program also includes Medical and completed in January 2009 and have secured when Edjawan learned that its on the ground. training, they will find it hard to Dental Civic Actions Programs been operational since then. owner, Albert Chua, has been friends manage their projects. Of course “Just don’t give up on them. Kung (MEDCAP). for a long time with Lt. Jose, one of his For instance, in Brgy. Narra, Mastura we agreed, because that is pre- kailangang mas regular yung They built a school building with junior officers. Jose first approached where a SALA’AM program was con- cisely what we want to do – that meetings to keep them grounded From February to August 2009, 14 comfort rooms and reservoir in Sitio Chua if a partnership was possible, ducted, barangay councilor Bra Ali organizations would learn how and involved that’s what we do… MEDCAPs have been conducted in Calaan, Tugaig, Barira through the ef- and Chua saw it as an opportunity and the elders of the village shared to handle their operations.)” , And you can be surprised. For different barangays in Parang, Sultan forts of the different groups represent- for the company’s CSR component to how much the people’s perception on all we know maraming patriotic Kudarat, and Buldon. The MEDCAPs ed in PPDCC. The facility, which costs reach more partner communities. The the military has changed after the sol- TASBIKKA reduced its training pro- Filipinos around just waiting for cover consultations with physicians, PhP 2.6 million, was turned over to the military and the PDCCs’ core group diers stayed with them for a couple of gram costs to support the efforts of opportunities to do something dentists, and health workers. The pro- local government of Barira on May 21, members have the means, contacts months. The soldiers built a basketball the PDCCs. The amount that was for their communities… . Those grams also distribute medicines and 2009. They also rehabilitated a road and resources to frequently visit the court in the village where they played paid to TASBIKKA was funded by the who want to serve are never conducts circumcisions. All these and constructed a spillway from Brgy. barangays. With their intervention, with the youth in the afternoons. They stakeholders themselves, especially a l on e .” MEDCAPs reached 2,703 beneficiar- Proper Nabalawag to Magdalum, Na- the people are given long-term liveli- also conducted situation analysis of the LGU heads. TASBIKKA also be- ies for the medical missions, 404 for balawag in Barira which benefits 1,000 hood opportunities. Chua narrates: the needs of the village and coordi- came part of the core group of Parang Multi-stakeholder circumcisions, and 547 for dental ser- people. Aside from these, they also nated with the LGU in the construc- PDCC, and continues to give commu- vices. constructed a building in Brgy. Nitu- “When you go around the areas here, tion of a school for the children. Most nity organizing trainings for the part- Projects an, Parang that is used for PPDCC ac- you will see there is so much unused importantly, the trauma they had be- ners and beneficiaries of the PPDCC The PPDCCs partnered with the US tivities such as stakeholders’ meetings land. And the people do not know what cause of Martial Law in the 1970s that As the core groups were established projects. Military officers who are assigned in and other workshops, interfaith dia- to do with it. When we introduced tree was instilled in the community dissi- and strengthened, both PDCCs ven- Mindanao to fund the expenses of the logues, partnership meetings, weekly planting to them, sabi nila natatakot si- pated. Ali narrated, tured into development initiatives for The core group members of PPDCC MEDCAPs for one year, aside from conferences, and meetings with im- lang kunin namin yung lupa nila (they their respective areas. Edjawan facili- and MPDCC have their respective other infrastructure projects. Edjawan portant guests. expressed their fear that we might grab “Noong paalis na yung mga sundalo, tates the meetings and activities of the sub-core groups to work with. When said that he and his junior officers -in their lands). So we went through sever- nag-iyakan yung mga nanay-nanay- core group, and continues to reach out the core group makes decisions, the vested much time and effort “court- In 2009, Minrico Lumber Enterprises al consultations and dialogues with the an nila kasi ayaw na silang paalisin. to more partners to execute the plans. members relay the message to their ing” the foreign aid-givers: Co. (MINRICO) became MEDCAPs PDCCs and the military to explain to Magbabarikada pa nga daw para lang As have been envisioned, the PDCCs organizations. The sub-core grou- primary sponsor when it donated them na hindi naman ganon (that their hindi na sila umalis… Nawala yung serves as councils in which the dif- phen align their activities to support “Maraming nag-aagawan syempre sa medicines for both Parang and Ma- fears wouldn’t happen)… . And now, martial law phobia ng mga taga-dito ferent stakeholders brainstorm, plan, the PDCCs. For instance, Edjawan funders (Many groups compete for tanog projects. The partnership with when we visit the areas, sustainable sa mga military. Mababait naman pala and execute their projects together. uses what he calls “shuttle diplomacy” foreign funds). So what could be our MINRICO has been ongoing since naman yung programs (the programs sila (When the soldiers were leaving, in coordinating with the MILF com- advantage? We showed them how hos- 2006, when it began supplying seed- are sustainable). Inaalagaan ng mga tao their adoptive mothers were crying For example, the PDCC followed the manders in the area. His relationship pitable we can be, sinasamahan talaga lings for tree-planting activities of the yung mga puno. Nakikinabang sila sa because they didn’t want the soldiers SALA’AM program model of the Phil- with Barira Mayor Tomawis enabled namin (we accompany them) anytime PDCCs and the military. As MIN- sarili nilang lupa. (The people take care to leave. The people even teased that ippine Army for development initia- him to talk with MILF Commander and for any length of time when they RICO’s corporate social responsibil- of the trees. They benefit from their they would set up barricades to pre- tives such as environment protection Jimmy Balitok, while his relationship want to do site visits… . In the process ity (CSR) component, it distributes own lands.)” vent the soldiers from leaving... . Their programs, tree planting activities, with Matanog Vice Mayor Bai Sirkit you build a certain friendship with seedlings for free to the people in the phobia for the military from the mar- sports development, cleanliness and Lidasan Ampatuan allowed him to them and they start to trust you, well, area who are usually unemployed and Chua added that a major factor in the tial law era disappeared. They said the sanitation activities, livelihood pro- communicate with MILF Command- aside from the projects really deserv- unable to make use of the vast lands. success of the tree-planting program soldiers were good people, after all).” grams, values enhancement and inter- er Jamero Watamama. Edjawan has ing the funding of course.” When the seedlings have grown, the is the prevailing peace in the area, religious dialogue. Because the army also established a relationship with trees can be sold back to MINRICO, which gives people an assurance that can reach far-flung areas, coupled Needs-specific Commander Bra Macapeges whom Aside from the MEDCAP operations, although not exclusively. if they plant the seedlings today, they with the funding provided by the LGU he contacts directly for consultations. Edjawan was able to secure foreign can still be there to reap the rewards interventions and the community organization ac- funding (including subsidies) for in- Edjawan and the stakeholders were of their hard work after 10 or so years. tivities, the PDCCs were able to send Aside from the components of the But the co-ownership process was not frastructure projects of the PDCCs. able to plant lanipao, molave, antipo- out services to different villages in the SALA’AM program, the PDCCs con- easy for Edjawan. He cannot expect all They installed water wells in Sitio lo, laurel, and talisay seeds in different The invigorated execution of the area. From February to September ducted several school symposia and the stakeholders to follow deadlines Sadasab and Poblacion in Manion, barangays of Sultan Kudarat. A total of SALA’AM components of immersion, 2009, nine SALA’AM batches of sol- inter-faith dialogues; the communi-

60 61 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

Needs-specific top student performers in 29 schools ippine National Police, and the LGU end,” one of them said, “this is our eas covered by the PPDCC and MP- firmed. Biglang lumaki yung range at in various barangays in Parang and provided the input for the seminars. challenge. Kami ang nagsimula nito DCC were “very peaceful.” Edjawan impact namin as peace-builders (Our interventions Matanog from June to July 2009 as the According to Edjawan, aside from kaya dapat we see to it na magtutuloy- cited two reasons for this: range and impact as peace-builders supplies are limited. The PDCCs gave the awareness and readiness it brings, tuloy lahat ng pinaghirapan namin suddenly increased).” Aside from the components of the these as incentives to the top students. holding seminars about emergency (We started this so we have to see to it First, when the partnerships for the SALA’AM program, the PDCCs con- situations builds the trust of the peo- that all our efforts will be sustained.).” PDCCs were being established, they ducted several school symposia and Peace-Keeping with The PDCCs also conducted inter-faith ple in the military and the police. were working with municipal may- inter-faith dialogues; the communi- dialogues in the grassroots level. The Within his leadership capital, Edjawan ors, and not with governors, especially Combat Readiness ties identified the need for these as first two inter-faith dialogues held on has taken steps in training his junior since that Shariff Kabunsuan was on very important. Members of the core Challenges and Peace-keeping efforts, however, re- June 6 and 13, 2009, were attended officers and inculcating social respon- its way to becoming a province inde- groups who are affiliated with schools quire a high standard of combat- by various Muslim leaders occupying Possibilities for sibility and the “BL framework” in pendent of Maguindanao.Edjawan initiated a series of symposia that cov- readiness. “Part of being able to keep different positions in the police force, Sustainability their actions, so that if the succeed- said, “Hindi naman kami Maguindan- ered lectures on key issues in Mindan- peace is to show that you are strong. barangay and local government units, ing officer is inclined to continue his ao before, kaya na-generalize lang ao and calamity preparedness. There And as an officer, I have to protect the the press, academe, and council of el- The primary challenge that the PDCCs peace-building activities, the partner- kami when martial law was declared. were stories shared and films shown, persons I am responsible for. At dapat ders and a Christian priest from the face is the inevitable reassignment of ships established with the junior offic- We really weren’t much affected by the all directed towards capacity-building kung aatakihin nila kami o yung mga Philippine National Police assigned Edjawan, a reality in military service. ers could continue. Edjawan said, issue.” Edjawan did not have a close among the students. barangay (And if they attack us or the in ARMM. The third inter-faith dia- However, Edjawan has made sure that working relation with the provincial villages) around the area, we should logue held on June 20 involved 20 LCEs were involved in the conceptu- “This is how I deal with the sustainabil- government of Maguindanao as he In Matanog National High School, be able to fight. That’s combat readi- imam, pastors, and chaplains, mem- alization of the PDCCs in Parang and ity challenge. And even if these offic- had a different assignment. a symposium was held to increase ness,” Edjawan said. bers of Council of Elders from differ- Matanog. According to Matanog Vice ers would also get re-assigned to other awareness among the students on ent barangays, members of the laity, Mayor Ampatuan, places, I am hoping that they would Second, although Edjawan recognized drug addiction, as the proliferation He explained that combat-readiness and representatives from the police show the same initiative to engage the that there were initial anxieties, Ed- of illegal drugs was identified as a key consists of three aspects: (a) prepar- force of ARMM. “Kung aalis na si Colonel, ako na mis- community and stakeholders there. jawan was quick in reinforcing the re- issue of the youth. In Parang High edness, which includes prevention, mo ang magko-convince sa mga (If Kahit hindi na sa Mindanao, sana ipag- lationships being established. He met School, a series of lectures was held intelligence, training of soldiers, con- According to a Christian pastor and a the Colonel leaves, I will be the one patuloy pa rin nila yung natutunan nila with the mayors and other local leaders on promoting peace, disaster manage- tingency planning, and a complete sup- Muslim religious leader, after the dia- to convince the) stakeholders to con- dito nung senior officer nila ako (Even individually to assure that the military ment, and fighting drug addiction. In ply of weapons; (b) deterrence, which logues, they conveyed their insights to tinue with what we’ve started… . From not in Mindanao, I hope they continue will continue with its peace-building these symposia, an Islamic perspec- includes “show of force” or the “threat the people in their respective church- the start very facilitative ang naging to apply what they have learned here and development activities and will not tive was incorporated into the lecture, to use force” if given the impetus; and es. The pastor said, role ng military (the military’s role when I was their senior officer).” do anything to break the commitments as the school officials themselves co- (c) actual combat, which aims for suc- has been facilitative)… . But we really it has made. Edjawan narrated: designed the lecture content with the cesses in missions. All of these Edjawan “For now we are in the process of mak- cannot rely everything on them para The junior officers have been speakers core group members. The lectures made sure were fully accounted for. ing connections between the faiths. I maging successful yung efforts namin in the school symposia and have been “With the local leaders, we conducted were also sensitive to the diversity of The combat-readiness of his brigade observe na sa mga pag-uusap namin sa (for our efforts to be successful).” active in consulting the communities dialogues with different groups. And cultural background of the students. was tested in several instances. church, mas accommodating na sila sa through the SALA’AM program. They there I felt how much the local leaders According to teachers from both Ma- beliefs and ideas ng Muslims (I observe Nevertheless, some core group members also assist in the tree planting and wa- trust us. Sabi nila (They said), the fear tanog and Parang High Schools, the In August 2008 in Gumagadong-Cal- that when we talk in the church now, expressed their concern that the projects ter well projects with their troops. is really coming from the martial law occurrence of the brawls among stu- uag (formerly known as Molina), Pa- they are more accommodating to Mus- might not continue if Edjawan is re- experience during the time of Marcos, dents was significantly reduced fol- rang, an MILF group tried to “reclaim” lim beliefs and ideas). And we’re hop- assigned and the LGU heads they have However, there were events that went pero hindi naman ganoon ngayon (but lowing the symposia. an area, which they claimed to be an ing that the effects of understanding been working with would not win in the beyond the control of Edjawan and the that is no longer the case). Sabi nung area grabbed by Christian groups. The other religions would be strengthened.” 2010 elections. In the Philippine political core group members and challenged mga mayor, ‘Bakit kayo matatakot? The projects also donated books to Li- MILF were armed and were building culture, when a program becomes closely the existing peace in the area. In No- Kilala nyo naman sila. Anong ginawa nayen National High School in Bon- camps near the Christian barangay. In July 2009, after an explosion in affiliated with a political personality and vember 2009, the Maguindanao mas- nila dito sa atin? Hindi ba MEDCAPs, go Island, Litayen, Parang; Matanog Upon receiving the report, Edjawan Cotabato City killed five people and that politician doesn’t win, the successor sacre happened which resulted in a SALA’AM, tree-planting? Bakit kayo National High School, Bugasan Sur, sent a group of soldiers to protect wounded 51 others, the PPDCC con- will most likely not support the program martial law that was briefly enforced in matatakot?’ (The mayors said, ‘Why Matanog; and Datu Usngan Mastura the Christian community in case the ducted two improvised explosive de- as continuing the program means rein- the entire region. Once again, Magu- would you be afraid? You know the National High School, Pinaring, Sul- MILF group would attack, after which vice (IED) seminars in Parang that forcing the earlier politician’s legacy. indanao was under scrutiny of the local military. What have they done here? tan Kudarat. A total of 228 books were he sent two SIMBA vehicles, weapon taught citizens the correct response and international media. MEDCAPs, SALA’AM, tree-planting? given to the three schools, from foreign carriers, mortars, and a full comple- mechanism when the presence of Even if this is the case, the core group So why would you be afraid?) And donors and civil society partners. They ment of soldiers. “We were trying to IEDs is reported. The core group members are strong in their resolve After the martial law declared by Pres- there the people were pacified. The also distributed school supplies to 450 give the impression that we were capa- members from the military, the Phil- to continue with the PDCCs. “In the ident Gloria Arroyo was lifted, the ar- credibility of the BL approach was af-

62 63 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

ble of engaging them if they decided ship capital of a military officer. He gaging with stakeholders. As a military without him. “Di ba yun ang challenge Army. He is in charge of assessing the quite honestly, hindi lang naman sa to attack. After two days, without fir- said, “I have to be capable within my officer prior to his BL Fellowship, he sa atin bilang isang bridging leader performance of missions, operational Maguindanao ang issue ng peace and ing a single shell, the MILF group just organization before I can become ca- has kept his introvert personality and (Isn’t that the challenge to a bridging readiness, effectiveness, efficiency and development (the issue of peace and left,” Edjawan recalled. pable for those outside the military has stayed “within my own bounda- leader)? The co-ownership process cost-effectiveness of missions, and the development is not just found in Magu- institution.” ries, such that hindi ko na pinakikiala- must be able to stand even without morale and discipline of troops. With indanao). It’s everywhere. That is why He called this action a preventive form man yung hindi ko na kailangang pa- me… . In my heart I am hoping it the change of assignment, Edjawan is kahit maglipat ako ng position (even of combat readiness, to “show force” Changes and Challenges kialaman (I won’t meddle with things will,” he said. strong in his resolve to continue being I get assigned to different positions), before an actual encounter happens. I shouldn’t be concerned about)”. a bridging leader. He said: I can still have impact in all that I do, Edjawan said, “I do not want to count as a Bridging Leader However, because of his training and Edjawan has already been re-assigned whether it be policy-making or doing civilian bodies before I act.” the mentoring he had received under as Executive Officer in the Office of “My BL journey has focused on the inspections. My BL learnings will sus- Edjawan is proud of the fact that ever the BL Fellowship, he realized that he the Inspector General of the Philippine issue of peace in Maguindanao. But tain my advocacy in all endeavors.” since he was assigned to the 37th IB, The second incident happened in cannot keep on doing this if wants to no armed conflict has occurred that Dinganen, Buldon. At that time, the sufficiently address his chosen divide. directly involved the identified armed military was directed to put primacy He realized that in peace and develop- groups in the area. Even when MILF on the peace process. However, an ment, the solution is not and cannot groups were attacking nearby areas MILF group arrived and threatened come only from the military. The stake- in Basilan in August 2009, Edjawan’s Dinganen by setting up camp in the holders that have the capacity to affect jurisdiction remained peaceful. He area. The people sent SMS messages to structural change are the heads of local combines developmental strategies the Company Commander assigned governments, while funds and other with combat readiness to ensure that in Dinganen. Edjawan responded by resources can be tapped from external the peace is kept. However, this is not sending an entire company of heavily- donors and even the people’s organiza- without consequences on his reputa- armed soldiers. Although there was tions on the ground. tion, at least within the military. He already a strong Civilian Auxiliary explained, Force Geographical Unit (CAFGU) Aside from this, Edjawan learned the force in the community, Edjawan value of co-ownership and aligning “Sa military nandoon pa rin yung said he had to respond immediately his projects with those of others. He body count, yung bilangan ng body because reinforcement would be dif- said, bags. Ibig sabihin nun lumalaban ta- ficult to send once violence broke out, laga kayo, kaya nawawalan kayo ng since Dingayen was at the boundary “When you are in the military, it’s easy tao. Eh ako, for the last year or so of North Cotabato and Maguindanao. to have a messianic complex. Kaya zero casualties ako. Kaya zero daw nga maraming nagiging coup plot- ako. Pero hindi naman yun ang mis- When Edjawan’s troops arrived in the ters. Hindi nila alam kung paano ang sion ko (In the military, there is still area, the MILF group pulled out from (That is why there are a lot of coup the body count mentality, they count their camps and resettled on a hill plotters. They do not know the) best body bags. This means you are really overlooking the community. How- way to engage the issues they see on fighting, which is why you end up los- ever, the MILF would fire random the ground. But that is not the path ing people. But in the last year or so, I shots at night for two weeks, “taunt- to change things. We should all start had zero casualties. So they say, I am ing” the military to fight, as Edjawan [from] a position of trust, so we can a zero. But that is not my mission). I described. He narrated that the Com- work with others.” am winning without losing a man… pany Commander then asked per- . My role is basically… a manager of mission to fire rounds of caliber 50 Edjawan does not expect to be able violence. I do peace-building and hu- (without targeting the MILF or the to visit the area as much as he would manitarian efforts. [But] if I am told civilians), just to show the strength like to when he gets re-assigned to a [by my superiors] to fight or go to war, of the military. Edjawan gave the per- different area. But he said that he can [then] I fight or go to war.” mission, after which, the MILF group continue being a bridging leader no left their camp. matter where he may be assigned. Throughout his leadership journey, He simply hopes that the work and Edjawan has found himself becoming Edjawan upholds combat-readiness relationships he built and facilitated more comfortable and confident in en- because it contributes to the leader- among the stakeholders will continue

64 65 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

“You cannot be part of the solution if you are not part of the prob- by September 2006, he became the sense of duty and responsibility to logue, communication lines were lem. The Mindanao conflict is everybody’s fault. It is the fault of the Commanding General of the 1st In- his father who worked hard and sur- opened, and this means that we fantry Division stationed in Pulacan, mounted various difficulties in order did not have to conduct indiscrim- government, civilians, and the military. That is why everybody must Labangan, Zamboanga del Sur, owing for his son to graduate from the PMA inate military operations. Because unite and come up with the solution to the divide we are facing.” largely to the successful peace building and provide a better life for his chil- people began to trust us, they gave initiatives he led in Basilan. As Com- dren. us the information that we needed manding General of the 1st Infantry to be selective and calibrated in For two days in June 2007, Major Gen- ementary School in Quezon City from General Ferrer also ascribed his ser- eral Raymundo Ferrer, then Com- 1962 to 1968. After initially enroll- Division, Northwestern Mindanao our operations, minimizing un- constituted his area of responsibility. vice orientation to his father: “My necessary damage.” mander of the 6th Infantry Division ing at the Quezon City Science High father had influenced me to think of the Philippine Army based in Cen- School for two years, he completed his of military service as a sacrifice and tral Mindanao, together with 25 of his secondary education in Ruam Rudi In March 2007, then AFP Chief of Staff The Bridging Leadership trainings General Hermogenes Esperon, Jr. per- service to people. The pay is meager also broadened his social capital and commanders from different brigades International School in Bangkok, in the military, but when you enter, and battalions of the Division, attended Thailand. sonally requested General Ferrer to network because during these train- bring his peace building work to Cen- you must have made up your mind to ings, he became acquainted with a Peace Building and Conflict Manage- serve and not to boss people around. ment Seminar conducted by the Kon- Upon graduating from the PMA, he tral Mindanao, which consisted of the other leaders. Moreover, their shared provinces of Shariff Kabunsuan, Magu- As a commander on the ground, I experience during the seminars facili- rad Adenaeur Foundation and the In- joined the Philippine Army as an In- wondered, what good can I do for the stitute for Autonomy and Governance fantry Officer. He began his military indanao, Sultan Kudarat, and North tated those occasions when they had Cotabato. On March 16, 2007, General area? What can I contribute to the de- to work together. Part of working with of the Notre Dame University. career as the Platoon Leader of the “C” velopment of people and to improving Company of the 45th Infantry Battal- Ferrer became Commanding General other leaders was the value of doing of the 6th Infantry Division which was peace and order conditions in their stakeholder analysis. General Ferrer Major General While it appeared unusual for the mili- ion in Eastern Samar. communities?” In his search for an- tary to attend a seminar with such a topic, based in Shariff Kabunsuan. General stressed, “Bridging Leadership taught Ferrer was promoted to Commander swers, he would go out of his way to me to work with my natural allies first Raymundo Ferrer the seminar was a timely undertaking for In June 1978, then 2nd Lieutenant Ray- hear from other people. the 6th Infantry Division given that Gen- mundo Ferrer joined the Scout Ranger of the Eastern Mindanao Command of and then with others, that’s the time Commander, Eastern Mindanao 1 eral Ferrer had become an advocate of Group, Special Warfare Brigade (Air- the AFP on January 25, 2009 . that we can work on convincing the Command, General Ferrer also maintained, “I neutral and even the enemies.” the transformation of the military from borne) of the Philippine Army then was very conscious about protecting Armed Forces of the Philippines an institution traditionally preoccupied based in Camp Capinpin, Tanay, Ri- Leadership Capital my credibility. For example, during with body-count to a peace-building one. zal. After three years, he was assigned elections, all politicians will approach The Military’s Duty and responsibility were two core General Ferrer felt that the military need- to the Southern Command 2, AFP in me to ask for help. But I have to clearly Contribution to the values that characterized General Fer- ed to clarify its role in peace-building im- Zamboanga City where he was exposed show that I have no personal interest rer. As Chief of Staff for Intelligence, Societal Divide mediately, as the ceasefire agreement be- to different staff duties. He later joined and that I maintain my neutrality, oth- tween the Government of the Republic the Intelligence Service of the Armed G2, of the Philippine Army, he imme- erwise my credibility will suffer.” He Throughout his years in the service, of the Philippines (GRP) and the Moro Forces of the Philippines (ISAFP) in diately acted on the telecommunica- believed that his credibility encour- General Ferrer realized that deep and Islamic Liberation Front (MILF) had be- 1984, rejoined the Army in 1993 and tions and supplies-related debts of the aged all parties and stakeholders to divisive assumptions underpinned come tenuous. took up a military career course in Fort past administrations. His decision ran trust and engage with him. the conflict between the military and Bonifacio in 1997. He was appointed as counter to the opinion of his budget the Muslim armed groups. The nearly Furthermore, General Ferrer believed Assistant Chief of Staff for Operations officer who pointed out that paying General Ferrer had likewise imbibed four decades of fighting had given the that he and his men could play an active in SouthCom during the major offen- the said debts would mean sacrificing lessons from joining various Bridging military the image of perpetrators of and critical role in building peace and in sive against the MILF in 2000, and was their Christmas celebration. Nonethe- Leadership trainings since September violence. Communities feared soldiers paving the way for the final signing of reassigned to ISAFP again in 2001 after less, General Ferrer was firm in his 2004. According to him, and their presence was associated with the GRP-MILF Peace Agreement. The the ouster of President Joseph Estrada. decision. He wanted to ensure that the bombings, killings, plundering, and the General realized that the military’s chal- He received numerous awards as a mil- debts of his office would not accumu- “The Bridging Leadership Sessions destruction of peoples’ homes. Soldiers, lenge in these times was to prove itself itary officer over the years. late during his term so that the next gave me the right tools for dialogue because of how they traditionally acted, a responsible advocate for lasting peace. head would not be burdened by some- and engagement, which allowed were regarded as enemies and occupy- On January 26 , 2004, then Colonel thing that General Ferrer considered The write-up was written me to be strategic in conducting ing forces, rather than protectors and Raymundo Ferrer was designated Bri- his responsibility. He attributed his by Philip Dy under the Background military operations. Through dia- partners in peace. supervision of Professor gade Commander of the 103rd Bri- Jacinto C. Gavino Jr., DPA Raymundo B. Ferrer was born on Jan- gade that was based in the Province of the Asian Institute of of Basilan. By October 2005, he was uary 23, 1956 in Makati City, Metro 1 The highest AFP authority in Mindanao covering Regions 10, 11, 12, 13 (Caraga), and Maguindanao. Management. Manila. He studied at the Murphy El- promoted to Brigadier General and

66 67 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

General Ferrer himself observed that In 2004, when General Ferrer was first and counter-retaliations between clans lan and Shariff Kabunsuan, General sition in Basilan. The military during trucks. Only the road segment of the military tended to treat the lo- reassigned to Basilan, he observed how to avenge the deaths of their respective Ferrer’s personal vision was one shared that period fought two different en- Lamitan-Isabela was paved and cals, especially Muslims, as enemies. the people’s fear of the military had family members. by most development-oriented groups emies using two different styles: with relatively safe. The long history of violence between persisted. He reflected on this phe- and institutions in the province—to the Moro National Liberation Front the military and the communities in nomenon and from dialogues with the Oftentimes, clans involved in rido ex- have a “peaceful and secure Mindanao (MNLF) the military observed cease- “That is why after 1997, I said, Mindanao was partly to blame for communities found out that the stories ploits either military resources or the conducive to development”. His repeat- fire situation; with the Moro Islamic “I am finished with this assign- this. During Martial Law, young offic- of military abuse dated back to Martial resources of the rebels as reinforce- ed assignments in Basilan made Gen- Liberation Front (MILF) it was full ment. I have already done my ers and soldiers were tasked to blindly Law years. He narrated: “There I was, ments to the personal fights they wage. eral Ferrer realize that for his vision to pursuit and open fire. tour of duty and this is enough. fight “enemies” in Mindanao without I realized, a senior officer talking to The involvement of the military in be achieved in a truly lasting way, the I have no personal interest in knowledge of the context of the opera- people in the barangay2 for two, three such feuds among clans further polar- military should be willing to change But the peace agreement with the this place. Life is so difficult here. tions. Such practice may have sparked hours. They had various concerns that izes the warring families and, in many not only the way it conducted its opera- MNLF finally happened in September And now, more than ever, I don’t the dominant military paradigm at first seemed trivial when compared instances, fuels the cycle of violence tions but also the way it worked with 1996, and soon in April 1997 General want to return”.” whereby body-count during encoun- to concerns I had heard from the non- until it becomes almost unstoppable. other stakeholders. Ferrer ended his assignment in Basi- ters was the basis for promotions. Ac- government organizations (NGOs) lan. He recounted his experiences Then in late 2003, when Lieutenant cording to the body-count standard, doing health and nutrition projects. The effects of this seemingly ceaseless The condition of Basilan was a per- during those times, General Efren Abu became the Com- more deaths on the side of the enemy They said they were afraid of the sol- cycle of military aggression and com- sonal challenge to General Ferrer who manding General of the Philippine meant victory for the military. diers. It was the way they looked, how munity alienation hit General Ferrer was first assigned to the province from “Those three years with all those Army, General Ferrer was asked to re- they spoke, how they held their guns hardest when he was reassigned to 1979 to 1980 as a Scout Ranger Lieu- operations going on, there was turn to Basilan for the third time. He In addition, when military units were like they were ready to shoot. And the Basilan in 2004, exactly 10 years after tenant. At that time, the military’s style no significant development in recalled being asked by Major General ambushed, the soldiers immediately as- incidents of abuse they narrated to me his previous assignment in the area. was to quickly penetrate the commu- the province. People used the Romeo Tolentino then the Chief of sumed that communities within 100 went back to Martial Law days. I said He recalled, “I saw changes in Basi- nities, neutralize the enemy, and then same bad roads and bridges that Staff of the Army, “Is Basilan OK with meters of the ambush site were sympa- the soldiers are not like that anymore. lan from 2004, thanks to the Balika- leave just as quickly after operations. were close to collapse. Business you?” and his replying hesitantly, “Yes thizers of the enemy. This presumption I realized there had been no healing tan Exercises3. Roads improved, were The roads at the time were in bad activity was very low… . I saw Sir! That’s OK Sir!” seemingly justified the soldiers’ retalia- process. How do you fight people’s widened and stabilized. Old schools shape such that it took five hours to only the copra transport going tory moves that included rounding up ci- perception that you are the enemy?” had been repaired, new schools built, travel about 70 kms while living con- out. Its jeep often got stuck in By January 2004, ten years after his vilians and conducting more operations Given the system of conflict escalation, and even health centers constructed.” ditions were miserable for both the deep mud so that we would need second stint in Basilan, General Fer- within the vicinity of the ambush site. confrontations were not uncommon. local people and the military assigned to pull it free as the military was rer said he saw some improvements Communication between the military Despite these physical changes, General to the province due to lack of potable the only one with a truck capa- which he credited to the interven- Clearly, long-held prejudices against and the communities was either non- Ferrer saw how relationships had not water and very poor sanitation due to ble of traversing muddy roads. tion of the Balikatan Exercises and each other produced a system of pro- existent or heavily doubted. changed, however, “I saw that people still lack of toilets. General Ferrer admit- In the town, the people’s fear the National Government that started tracted conflict and escalation of hos- had fear.” This fear was manifested by the ted that after leaving Basilan for new was evident. By 6 p.m., all stores in 2002, “Mainly, the roads had been tilities between the military and its The conflict was further aggravated fact that people did not volunteer to help assignments, he did not want to return closed and people got off the widened, made more passable be- perceived enemies. As more encoun- when the military became involved in out in the repair of schools and the health to the province. streets. Only the soldiers were to cause of the gravel pavement. Life was ters erupted, the more frequently the community conflicts.Rido (or vendetta), centers; just as potential beneficiaries did be seen. Pagkagat ng dilim, sun- somewhat better, people said. Magan- military conducted indiscriminate op- as called by Muslims, refers to personal- not avail of these services. He also ob- But in 1994, by then a Major, he was dalo lang ang lumalabas (When da na at guminhawa ang buhay (Life erations in communities believed to ly resorting to killings to resolve clashes served that when the military would call assigned as Executive Officer of the darkness came, only the soldiers has improved), except for the peace be sympathetic with the enemy, even if among groups, usually clans. Due to the for a dialogue or meeting with the peo- 18th Infantry Battalion. At that time, were out). Life was very hard. and order situation. Tension was high the aggressors were not connected with inefficiency and ineffectiveness of the ple in a community, only few showed up the problem with the Abu Sayyaf5 was because of the encounters with Abu these communities. Similarly, the more formal justice system, individuals and mostly women and old men. growing more intense following the “I also considered personal dan- Sayyaf.” the military conducted operations in clans would prefer to take the law into kidnapping of Fr. Cirilo Nacorda,a ger. In 1994, while it took 5 hours communities, the more the image of their own hands to find redress for their Personal Response Catholic priest. From Buug in Zam- to traverse 70 kms because of the He went on, “So I found Basilan like the military as perpetrators of violence grievances. Rido could become violent boanga del Sur, Major Ferrer’s bat- bad roads, every kilometer there that—the hard-line military approach was reinforced, thereby intensifying the and protracted, especially if honor is During his major assignments in Basi- talion was transferred to Basilan to was the possibility of ambush. prevailing. I saw that the people’s fear communities’ fear and hatred of it. violated. It triggers cycles of retaliation replace the Philippine Marines. The There were 40 kms of ambush- remained. Their attitude towards the years 1994-1997 were a time of tran- areas. We rode with two escort military had not changed since 1997–

2 The barangay is the smallest political unit in the Philippines.

3 The Balikatan Exercises is a joint military training between the armed forces of the Philippines and the United States of America. 4 The Abu Sayyaf is a local terrorist group that is based in the southern islands of the Philippines.

68 69 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

galit pa rin sa military, parang kami the divide and might well aggravate it, of Basilan so that he would under- poverty?” The military’s transforma- port what they were doing, especially The new military approach that Gen- ang kontra bida (they were still an- General Ferrer thought. stand their perspectives, gain their tion into an institution responsive to because in talking with others, I al- eral Ferrer espoused, according to gry, like we were also their enemy). I trust and support in more effectively the needs and sentiments of the com- ways asked: How could I help and how him, rested on two principles. The thought there had to be a better way General Ferrer also realized, addressing the conflict. In particular, munities where they were embedded could we help?” first was having the discipline to look of doing things.” General Ferrer had an informal dia- was imperative. As General Ferrer’s at the conflict and the peace-build- “Eliminating the fear of the peo- logue with the priests and nuns in the personal mission aptly summarized, Eventually, these informal conversa- ing effort from a multi-dimensional Thus General Ferrer’s questioning of ple and addressing their true area and asked for their suggestions the central challenge was “to develop tions led to more formal partnerships. perspective. Central to this was the the way the military conducted its op- needs will need not only purely and insights on what could be done the officers, soldiers, and CAFGUs6 Slowly, these dialogues showed the military’s being conscious of the so- erations began—with the realization military operations; we have to to improve Basilan’s situation. A very into responsible fighters and effective stakeholders that the military was “not cial implications of its involvement that the traditional military approach engage others so that they can important part of the dialogue was peace builders responsive to the secu- after everybody” and did not consider or non-involvement in a conflict. In in Basilan over more than two decades be part of the answer in really the discussion of the Lamitan Siege of rity, peace and development concerns everybody as “enemy.” a very real sense, the military had to (1979-2004) when he was in and out helping people. Problems con- 20015. When discussing the siege, one of the stakeholders.” confront the ‘humanity’ of the com- of the province, achieved nothing. cerning peace and development priest suddenly cried in front of Gen- Among other things, General Ferrer munities it served. Human relations are simply too complex, that is eral Ferrer, expressing disappointment According to General Ferrer, it was highlighted the social impact of mili- had to go hand-in-hand with military His appreciation of the cycle that ac- why the military should learn over the military’s handling of the the unresponsiveness of most local tary operations. The fear was that if operations because sincerely respect- counted for the conflict and fear in his to work with other stakeholders siege. The priest lamented that three government units in Basilan which military operations intensified, civil- ing the people and their plight could areas of responsibility throughout his if true progress is to be made. years after the event, not one military prompted him to engage and urge ians would be displaced. NGOs ex- generate reciprocal respect. Military years in the service made General Fer- At the same time, engaging oth- officer had approached the people to non-government organizations such plained that their organized commu- operations, if mindful of social impli- rer realize that the military and how it ers will go a long way in battling discuss the matter, much less apolo- as the Christian Children’s Fund nities would evacuate, and their health cations, would put a human face to the conducted itself were partly to blame long-held mindsets and biases, gize for the Abu Sayyaf kidnappers (CCF) and the Nagdilaab Founda- programs and nutrition programs perceived Muslim enemies. for the continuing conflict. The Gen- which will likely be transformed having escaped, virtually unharmed. tion Inc. (NFI), to play bigger roles in would be affected as the community eral became increasingly convinced in working with each other. After delivering basic services. This proved dispersed. These were the social im- The second principle was putting a that military operations should be being drawn into the insurgency General Ferrer’s encounter with the difficult at the start, again because of pacts of military operations. “I saw premium on initiating dialogues with radically reconfigured in his areas of problem long enough, the AFP priest made him sense some greater the web of prejudices prevailing. Ac- that it was only right that their social the people to generate more ideas on responsibility, lest they continued to has acknowledged that winning purpose in his continuing assignments cording to General Ferrer, non-gov- programs not be disrupted. We are all how to resolve conflicts and build last- stoke the vicious cycle of conflicts, the hearts and minds of the peo- to Basilan. He was, especially now, in ernment organizations were wary of part of a bigger society. I started to ing peace. The dialogues could help prejudices, and vengeance. He said, ple is critical for us to get the a better position to initiate changes; the military’s sincerity and intentions think about the possibilities for subor- the military and communities deter- “If I just do things exactly as how support of the masses. Popular and the realization strengthened his while the military often assumed that dinating military programs to overall mine a common ground on which to we always do them, then what will support is the decisive point in resolve to do things differently. More non-government organizations pre- concerns of the people. I heard from work together to achieve peace and change?” According to him, the mili- any insurgency war. Moreover, and more, he became convinced that sent in the Abu Sayyaf and MILF areas them how they also wanted their pro- development. Peace and development tary simply cannot aim at killing more the AFP has long realized that traditional military operations were were sympathetic to them. General ject areas secured by the military, and should be a shared responsibility rath- and more enemies any longer because military operations alone cannot not enough to solve the insurgency Ferrer saw the need to establish his they gave suggestions where to put the er than the military’s alone. killing more people would only breed solve the decades-long problem problem and that the military alone credibility and build positive relation- detachment so that the projects would more hatred against the military. Gen- of insurgency and conflict in ar- did not have all the answers. ships with these groups. He recounted, be secured and not disrupted.” In 2005, General Ferrer attended the eral Ferrer cited that it was common eas of Mindanao.” Mindanao Peace-Building Institute knowledge among the communities In the course of purging the enemy, “I started with informal conversa- He stressed that the military’s main Seminar on the Fundamentals of that many of the Abu Sayyaf mem- Reflecting on these, General Ferrer’s ap- military operations killed or maimed tions and engagements and I made it priority was to ensure that “military Peace Building and Conflict Resolu- bers were the orphaned sons and rela- proach in Basilan in 2004 veered away civilians, terrified communities and a point to sincerely show my interest actions would have a positive impact tion Skills in Davao City. This semi- tives of former MNLF fighters. Their from indiscriminate military operations disrupted livelihood. Aware of all in what they’re doing and in the pros- on the people.” His assertion reflected nar, he believed, gave him a deeper involvement in the Abu Sayyaf was and the body-count standard. Instead, these, General Ferrer felt that the mili- pect of partnering. At the same time, I an aspiration beyond the traditional appreciation of peace. He said, possibly an expression of retaliation he started to engage people and develop tary was responsible for a deeper, neg- remained open-minded and I actively top-down approach of the military. against the military for the deaths of relationships with the different stake- ative impact, “One side of the conflict listened to their concerns. I found “In the military, we don’t use the word their fathers and relatives. Traditional holder groups in the province. was the Abu Sayyaf; the other side was that acting in this manner made them Understanding the New peace. We don’t even try to understand military operations, whose main ru- the victims of the encounters. I could open to giving their suggestions after what peace means. Our common no- bric was body-count, could not solve He talked and listened to the residents not help but ask—Are we promoting which we simply found ways to sup- Approach tion of peace is the absence of armed

5 In June 2001, the Abu Sayyaf kidnapped a group of American and Filipino tourists from the Dos Palmas Resort in Palawan and brought them to Basilan where they joined more hostages taken from Basilan, at the Jose Torres Memorial Hospital in Lamitan City. 6 Citizen Armed Force Geographic Units.

70 71 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

conflict. But I realized that it is a very Internal Challenges in garded as the successful combatants. Management Team which was con- Leading the Way default body-count standard somehow broad concept. As I tried to understand The military system did not award vened for that purpose. indicated that his ideas were gaining Implementing the New what peace means, my perspective soldiers who established peace. The discipline and professionalism headway. Moreover, in the communities broadened and I applied it as a leader Approach Mayor Luis Biel III of Isabela City was of General Ferrer’s soldiers might be and the different sectors General Ferrer in the military. I also realized that we At the same time, General Ferrer assassinated in March 2006. This inci- credited for the fact that civilians in had worked with, his superiors noticed In 1977, four years after the armed still have so many things to do after the said that under the strong top-down dent was allegedly a consequence of the the General’s areas of responsibility his handiwork. During one visit of then conflict between Muslim groups and fighting. You have to regain the trust of and seniority culture of the military, decision of the Isabela City Govern- had not filed any criminal or adminis- Department of National Defense Sec- the Philippine military started, Gen- the people and heal old wounds.” young soldiers learned to “obey first ment to demolish a mosque that stood trative case against any of his military retary Avelino Cruz with all the senior eral Ferrer was sent to Mindanao as before questioning.” This stifled crea- on government property. As expected, personnel. Moreover, at the height of commanders of Western Mindanao in part of the peacekeeping troops. He General Ferrer further recalled of the tivity and progressiveness among the the allies of the assassinated Mayor first political destabilization activities in Zamboanga City, he cited how Basilan remembered that time how the senior said seminar, younger soldiers because they were blamed General Ferrer and his men for Manila in February 2006, not one mil- had become a success story and praised officers constantly reminded them of expected to merely defer to the com- failing to protect the Mayor, even as itary officer based in Basilan joined General Ferrer’s approach in resolving the reason they were in Mindanao: to “I was invited to represent the mands and values of those above. the Mayor’s bodyguards were with him the adventurism. According to Gen- conflict and building peace. fight the Muslims. As a result, he said, military organization. I met heads General Ferrer himself admitted that during the attack and killed the assas- eral Ferrer: “It is an indicator that we he developed this bias, which he car- of NGOs and businesses there, occupying such a high rank, despite sin afterwards. The Mayor’s allies also know our role in society and we are ried for many years: that all Muslims Initial Results the religious and other diverse his deviating from military tradition, demanded that the military initiate in- focused on our mandated mission.” were to be considered enemies. groups–key leaders of various ar- was a milestone in itself. vestigations leading to the punishment Subtle changes were noted in the peace eas experiencing armed conflicts. of the perpetrators of the crime. In the face of the many challenges, and order situation in Basilan after According to General Ferrer, it was prob- I asked myself why I had not met General Ferrer continued to hold dia- General Ferrer left the area. By the time ably this bias, which many shared, that The New Military with them before and realized General Ferrer noted how the city gov- logues between his men, on the one General Ferrer left Basilan, the military also prompted the military to conduct Approach in Action then that I had had no capacity ernment was the only stakeholder group hand, and the communities and civil and communities had better working to convene. I realized that I could operations without regard for social im- that did not cooperate in the dialogues The new approach of General Ferrer society organizations, on the other. relationships built on trust that was not convene diverse groups if I plications on the greater Muslim com- on the disputed mosque. The city gov- and his men in addressing insurgen- Experience had shown him, after all, increasingly being regained. The com- imposed my agenda of security. munities. The military simply cleared ernment instead insisted that the court cy, while not devoid of challenges in how dialogue could be a venue for munities and the stakeholders that I learned that as a leader, I could areas, uncaring of the displacement of had already resolved the issue in favor of implementation, was starting to dem- healing wounds. Such dialogues could General Ferrer worked with declared only convene if my agenda were entire communities. The military also the planned demolition. The stubborn- onstrate results. Two major violent convince civil society to begin seeing that they were happy about how the broader and derived from the con- conducted patrolling and military of- ness of the mayor and the city govern- incidents in Basilan illustrated the the military as sincere and open to military operated; they mentioned how cerns of the participants. Clearly, fensives without talking to communities ment was believed to have stirred nega- new military approach in action: the listening and working with them to the military’s efforts had real impact on other groups will not help us if our that its operations might affect. tive sentiments among some sectors of abduction of a Councilor’s daughter attain peace. Similarly, the dialogues the people. No longer were the local only concern is to look for the en- the Muslim population. and other formation initiatives of- residents wary or afraid of military of- General Ferrer further added that the and the assassination of the Mayor of emy. They wouldn’t want to be part fered opportunities for the soldiers ficers. Instead, they perceived the mili- practice of the military to reward or Isabela City. of the fighting. The larger group This showed General Ferrer that a to rectify their misconceptions about tary as important not only in ensur- promote officers responsible for the must have a broader and common balance should be struck between le- Muslims and the communities. In this ing security and protection but also in most number of dead “enemies,” re- When the daughter of a Councilor in agenda. I realized that if we focus gal and socio-cultural considerations regard, not only did General Ferrer promoting progress and development. inforced this bias. In most instances, Basilan was kidnapped in 2005, the on just the military concerns, no because while the city government lead by example; rather, he deliber- Basilan, which was formerly known as the most highly decorated generals situation was initially confusing be- one will be interested. Peace and had the legal right to reclaim the land ately trained his men in this direction. a terrorist haven was able to enjoy rela- were those who had launched dam- cause there were no clear suspects. security are the larger group’s con- where the mosque stood, the socio- He believed that the quality of his re- tive peace. Aware of the fragility of this aging offensives in enemy territories The immediate reaction was to point cerns too, but they have other con- cultural dimension attached to the lationship with his men should reflect peace, however, General Ferrer sought at the cost of the lives and homes of to the MILF forces in Tipo-Tipo Mu- cerns and I must respect those, if mosque as the Muslims’ place of wor- the quality of the relationships of his to ensure that prior to his transfer, the so-called enemy sympathizers. nicipality as the abductors retreated they are to work with us.” ship ought not to have been ignored. men with the communities. structures and mechanisms would be Thus, transforming the military from toward that area. However, General Through it all and despite pressure to in place so that the unit he left behind war machine to peace-builder and Ferrer did not easily accept these pre- In short, General Ferrer realized that make a stand on the issue, General At the same time, General Ferrer con- would continue to work on people’s conflict-manager remained daunting, sumptions. Instead, he coordinated the work of peace-building did not Ferrer and his units in the 103rd Bri- tinued to advocate this new approach minds (“clarifying perceptions”) and notwithstanding the existence of a few closely with all sectors that were in end when the last gunshot was fired. gade decided to remain neutral. Gen- to the other Generals and soldiers. He hearts (“healing the hurts”). from the outfit who asked what real a position to help in the resolution Rather, the end of the armed conflict eral Ferrer believed that had the mili- led efforts for his colleagues to come to- peace demanded of them. The prima- of the incident, including the MILF. signaled but the beginning of the tary forced the issue or sided with one gether to find new ways of solving the The work of sustaining the gains that cy of the warrior ethos could not be In the end, the MILF forces were the longer and more important process of of the parties, the conflict could have four-decade conflict at their different he began in Basilan was a challeng- discounted. Moreover, peace-builders ones that arrested the kidnappers and resolving deep-seated and underlying escalated and turned violent. levels and areas of responsibility. That ing task, General Ferrer admitted. He in the military were not as highly re- safely brought the victim to the Crisis conflicts. more officers began to question the shared,

72 73 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

“I left Basilan in 2006. Before Basi- which then AFP Chief of Staff Gen- believed that soldiers trained to be culture and mentality of the military: just be concerned about day-to-day cost him quality time with his family. lan was turned over to the Philip- eral Esperon wanted General Ferrer to responsible conflict managers could to focus on the body-count. matters. As a leader, I should have a Because of the amount of work that pine Marines in 2007, the Philippine achieve in Central Mindanao when he contribute more to strengthening the personal vision from seeing the bigger needed to be done in his areas of re- Army units under 103rd Brigade led was reassigned to the region. As such, peace process between the GRP and The Fellowship also reinforced the im- picture and I should remember that my sponsibility, he had to spend long pe- by Brigadier General Raynard Ron- within three months of assuming his the MILF because no authentic talk portance of partnering with stakehold- organizational vision ought to be an ex- riods away from home several times in nie Javier was still responsible for it. I post in 6th Infantry Division in Shar- on peace could be achieved without ers. General Ferrer was aware that as pression of my personal vision. Without the course of his career. Nonetheless, can say that the peace and order situa- iff Kabunsuan, General Ferrer initi- an accurate appreciation of the nature the military did not have the time or a clear personal vision, business-as-usu- he exerted utmost effort to include his tion did not deteriorate after I left, but ated action within his ranks for them of the conflict to begin with. resources to build a critical mass of al will prevail and for the military, that family in what he was doing so that that is not an excuse to be complacent. to have a deeper understanding of the soldiers cum peace-builders, engaging means that the body-count standard they would understand his work and The positive relationships that I built Midsayap, North Cotabato conflict. On Being a Fellow and like-minded civil society organizations will remain unquestioned. why it was very important to him. with the people in Basilan were not The said conflict at that time figured that could provide support for training something that I could not pass on to prominently in the headlines because Lessons Learned soldiers in peace-building and conflict- “At the same time, I have also learned Despite both professional and personal the next Brigade Commander; but he of what it had triggered: violent en- management was crucial. For example, to become more organized and delib- challenges, General Ferrer remained In his Statement of Purpose as a Fel- would have to personally build good counters between military forces and he partnered with the Balay Mindanaw erate when it comes to action because committed and hopeful. As he himself low of the Bridging Leadership Fel- relationships with the stakeholders. At the Bangsamoro Islamic Armed Forc- Foundation Inc. during his brief stint a clear personal vision provides the said, “After I retire, I will continue to lows Program of the Asian Institute of least, General Javier was open to the es. Upon examination, he saw that the in the 1st Infantry Division to give basis for all these actions. The big- pursue a career in resolving conflicts Management – TeaM Energy Center importance of the new approach, es- conflict essentially concerned land peace-building trainings to his offic- ger picture influences the tactical ac- and involve myself in the peace pro- for Bridging Societal Divides, Gen- pecially with regard to engaging with disputes; the military had merely been ers and soldiers. When he was already tions. Hindi na bara-bara lang [It’s not cess. It has become my life’s mission.” eral Ferrer declared: “Being admitted stakeholders. dragged into it. based in Shariff Kabunsuan, he con- anything goes anymore.]. There is a to the… Fellows Program is a good tinued the training of his officers and greater vision that directs all actions backstop for my unconventional ap- The Work Continues “But what I think is most important General Ferrer supported the Inter- soldiers in peace-building, this time in to contribute to the bigger picture. proach… because in our culture, no- in sustaining the gains in Basilan is Agency Task Force7 (IATF) formed to partnership with the Notre Dame Uni- body will write about your good prac- On July 10, 2007, a group of militants the fact that a good number of the address the conflict. In one particular versity’s Institute for Autonomy and “I also learned that I cannot do every- tices unless you are the Commanding ambushed a Marine convoy in the local leaders there have been trained meeting in May 2007, General Ferrer Governance. At the same time, General thing, and that I just have a role to play. General of the Army or the Chief of Municipality of Tipo-Tipo in Basilan. in Bridging Leadership also, like me; reassured the members of IATF that Ferrer was open to working with local Part of this is learning that I do not have Staff of the AFP. When you write Fourteen Marines died due to the at- and that is why they are now empow- the military was committed to help government units and the Philippine all the answers. You cannot tell people about yourself especially your success tack, 10 of whom were beheaded. Af- ered to initiate the engagement with peacefully address the conflict. The National Police in his area of respon- what’s good for them anyway. You have stories, some of your seniors become ter all the peace-building work that whoever is the Brigade Commander, military’s attendance was a landmark sibility, toward attaining a secure and to get to know what they want and then insecure and start treating you as a General Ferrer had done in Basilan, including General Javier, and even and symbolic event that emphasized peaceful environment for everyone. customize your actions to satisfy their threat to their career.” he reflected on the incident and noted, with the Marines, when the area was its commitment to become part of the concerns so that there is impact.” turned over to them. Also, since Major conflict’s peaceful resolution under The Fellowship likewise gave General The Fellowship strengthened General “Peace is so fragile, and so structures and General Benjamin Dolorfino, who is General Ferrer’s leadership. Ferrer the opportunity to reflect on Finally, the Fellowship made General Ferrer’s resolve to change the tradition- mechanisms for stakeholder collabora- the Commandant of the Marines, has and articulate the lessons gained from Ferrer more conscious of the personal al military culture. As his experience tion to build and protect peace have to been trained on Bridging Leadership, General Ferrer supported the IATF his experiences, which allowed him to costs that came with being a leader. proved, the military could dispense its be built while we work through people’s he is very deliberate about training not only because he believed that grow as a public sector leader. He said, In clarifying his leadership vision and responsibilities using a different, untra- minds, to clarify perceptions, and hearts, his Marines on how to engage. He has it was the best way to proceed, but mission, it became clearer to him that ditional method. General Ferrer led by to heal hurts. I see this as a challenge to even asked me to help in the trainings also because the military’s participa- “As a leader, I learned that I had to el- instigating changes in the military was example and advocated real change in strengthen local peace formations and a couple of times. The crucial point tion was an opportunity for him and evate my strategic thinking: I could not his true calling, though it oftentimes his area of responsibility, hopeful that coordination between GRP and MILF.” is to maintain the good relationships his men to understand the conflict in he would be able to influence his supe- with the communities and the stake- Midsayap. He wanted to train his men riors and colleagues to value and follow holders, whoever the leader is.” to be responsible conflict managers, the new approaches espoused by his willing to make an effort to under- men and himself. He did all these de- The results of General Ferrer’s ef- stand the conflict before initiating any spite his full awareness of the prevalent forts in Basilan were the very goals form of intervention. General Ferrer

7 The IATF is composed of representatives from national line agencies (such as the Department of Environment and Natural Resources, the Department of Agrarian Reform,and the Department of Agriculture), the Joint GRP-MILF Coordinating Committee on the Cessation of Hostilities, the International Monitoring Team, the 6th Infantry Division, the Philippine National Police,the Registry of Deeds, the concerned local government units including barangay officials, and civil society groups.

74 75 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

On December 5, 2008, the Cabanatuan City schools division quirements for a Master’s degree in UP Diliman. Deciding that the job to support his growing family. But held a teachers’ congress at the Nueva Ecija Convention Center Urban and Regional Planning pro- had become too risky for him and as his formal appointment came with the theme “Taas Noo, Teacher Ako”. The event was a cele- gram from UP Diliman in 1996. his family, Garma relinquished his in 2006, with the Cabanatuan City Though he would be appointed that position and focused on entrepre- Schools Division as his first assign- bration of the role of education in the city and, most importantly, year as adviser of the Grades 7-10 neurship. His departure from the ment, Garma’s natural passion for the people behind it–the school principals and teachers of the 57 Student Association, Garma re- UP System coincided with his com- leadership and development would elementary schools and seven high schools of Cabanatuan City. signed from UPIS in 1997 and was pletion of a Master’s degree in Busi- soon emerge. subsequently appointed as planning ness Administration from the At- officer and acting director for Com- eneo Graduate School of Business The Societal Divide: munity Relations of the UP Diliman in 2003. Garma engaged in various The commemorative video from eventually allowed him to lead as Cyclical poverty and the the congress shows the many cadet officer, during which he devel- campus. His new perspective on ventures, including a bar and then lack of education positive changes in Cabanatuan oped a strong sense of discipline and planning and development was key an ice cream franchise. His business in addressing the many challenges undertakings brought him practical City schools division such as in- leadership. Garma pursued a degree Garma described his first days at in UP Diliman, most notably that of knowledge in management, espe- frastructure improvements of the in Education, taking an internship work in DepEd’s Cabanatuan di- informal settlers. His new responsi- cially in handling finances. division office and new classroom as a classroom teacher at the UP In- vision office as instrumental in bility, however, tested his leadership buildings. The short film inter- tegrated School (UPIS) prior to his changing his perspective. The and character more intensely. “I was spersed the showing of these im- graduation. He was sufficiently im- Entering the Department idealism he had as a young assis- quite literally chasing down informal provements with candid vignettes pressive that his internship eventual- of Education tant schools division superinten- settlers and spending my time ne- Malcolm S. Garma of school leaders, members of the ly yielded an offer to teach full-time dent (ASDS) opened his eyes to Schools Division gotiating with them,” Garma shared faculty, and division personnel at UPIS after his graduation. Although Garma’s foray into en- many deep-seated practices with- of the tough and often difficult na- Superintendent, sharing a renewed hope they have trepreneurship was rewarding, his in the division that he sought to ture of his job. In addition to hon- Cabanatuan City Schools for education in Cabanatuan. Each In 1992, Garma joined the UPIS intellectual curiosity led him to a change. “Of course when you are ing his skills in conflict resolution of them gave thanks to their leader, faculty and immediately showed totally different path. Garma’s par- young, relatively new to the en- Division, and multi-stakeholder processes, the current city schools division strong leadership and facilitating ents were both public school teach- vironment, and are coming from Department of Education Garma matured as a leader despite superintendent, Malcolm Garma. skills. As a result, he became one of ers. His father was the regional a management background, you his young age. Leading an office with the few junior faculty assigned to director of DepEd Region 4A. Gar- see so many things that you want with members who directly reported Background positions of responsibility. He was ma was intrigued with a form his to change,” Garma said of his start to him and who were all older than appointed adviser of the Grades 3-6 father took home one day, which as ASDS. One thing he noticed in- he was a challenge that Garma over- At 38, Malcolm Garma is far from Student Council for SY 1993-1994. was in fact an application for the cluded the lack of professionalism came and as a result he earned re- the typical profile of a leader in the In the same school year, he organ- Educational Management Test among division personnel. Many spect from. One colleague described Department of Education (DepEd). ized the school’s Debate Society. (EMT)–the eligibility exam given of them came to work without Garma as “bold but endearing,” re- His personal leadership journey finds Garma was well received by stu- to those seeking Assistant Superin- wearing proper uniform, and it ferring to his youthful exuberance, roots in diverse experiences that, in dents, parents, and fellow teachers tendent and Superintendent posi- was common to have offices in the idealism, and concern for those his words, “all eventually came to- for his work. The positive feedback tions in the DepEd. Relying on his division filled with children of the within and outside the office. gether and brought him to this point.” he earned led to his appointment degree in education and his brief employees. “The uniforms, pro- as Vice-Chair of the UPIS Student background in teaching, Garma fessionalism, and the identity of The idealism that Garma displayed Garma’s first brush with leadership Welfare Committee for two con- decided to take the examination. our division… these may be small as leader was a source of inspiration was serendipitous. Coming in late secutive school years (1994-95 and Though he was not optimistic for things but they speak of the lack of for the Community Relations Of- for ROTC as a freshman in the Uni- 1995-96). Garma’s leadership skills his EMT results, he passed the motivation within DepEd Caba- fice. However, it was the same trait versity of the Philippines Diliman, were instrumental in the commit- exam in May 2005 and became eli- natuan.” Garma found that many This write-up was written by that inevitably unearthed the real Garma found himself with the rest tee’s work on student needs and ad- gible for the assistant superinten- problems within the division office Jose Rafael S. Alarilla under dangers of dealing with informal of the day’s latecomers in a separate dressing student discipline. dent position with the DepEd. Ini- directly affected teacher morale the supervision of Prof. Ernesto settlers. At one point, Garma even platoon, which was incidentally for tially, Garma opened himself to the and performance–problems like D. Garilao of the AIM – TeaM received threats from a syndicate Energy Center for Bridging the Cadet Officers Candidate Corps. Despite his busy schedule as teacher, DepEd opportunity primarily as a an inconsistent career ranking and of informal settlers operating at Leadership. His commitment to the program Garma completed the academic re- means of earning a regular salary promotion system, unresponsive

76 77 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

allocation of resources, and poor change the division from within–a criti- in a position to effect the dwindling about the transparency of the rank- teachers from actually pursuing tive ways to instill transparency and teacher training and compensa- cal foundation for the collaborative work morale of the teaching staff. The com- ing and promotions system, many their responsibility as teachers as empowerment in the division. He tion. These issues yielded poor he would later undertake. mittee was in charge of managing va- practices remain to be changed. the activities ate up much of their turned his attention to the school academic achievement from Caba- cant teaching positions and evaluating Garma was aware of the “whom time; furthermore, some of these level issues. Unresponsive or inef- natuan’s elementary and secondary Relationship building as teachers applying for these vacancies you know” mentality that mem- films that they require the student fective resource support had long based on a strict ranking system. Ide- level students. bers of the division. He witnessed to watch did not have any bearing been the problem of school leaders. the Assistant Schools ally, the committee would endorse the Division Superintendent top-ranked applicant to the SDS, who the extent to which some teachers, on their students’ academics. Some schools received many black- In addition, rice farming, which is the would then approve the appointment. principals and non-teaching staff boards but not have the classrooms. primary source of income of the city, Garma was keenly aware that his role However, this was inconsistently ad- would go just to gain his favor or Addressing what is behind the Others received physical education is also part of the cycle of poor edu- as ASDS obligated him to defer to the hered to, causing discontent, poor the SDS’s. “Sometimes it can be dif- motivations of teachers was some- gears instead of much needed read- cation and underdevelopment. Many Superintendent’s (SDS) decisions. In performance, and even questionable ficult to distinguish between plain thing Garma frankly described as ing materials. Garma attributed fields in the city are poorly irrigated spite of limitations, he found space ethics among teachers in the division. hospitality and a ‘hidden motive,’” difficult: “I tackled this issue with this to a lack of transparency in the and yield harvest at subsistent level within his responsibilities to influence One teacher remarked, “We had be- admitted Garma, who also conced- honesty, and the fact remains that use of the Special Education Fund for farmers. A good portion of rice positively the people around him. The come used to a system of ‘whom you ed that it is characteristic of Caba- it is too difficult as of now to com- (SEF) and items charged under way Garma approached the ASDS that is sold in the markets of Caba- know’ rather than ‘what you know.’” natuan residents to prepare food, mit to an increase in teachers’ sala- maintenance and other operating position was fundamentally differ- natuan is still taken from neighbor- Garma addressed this by openly stat- drinks, and pabaon (gifts, usually ries. What we have focused on is expenses (MOOE) and the lack of a ent from the tradition of the division. ing that the committee would une- ing provinces such as Quezon. Most food.) “This is acceptable behavior returning dignity to their profes- clear channel through which school Many were surprised, when they found quivocally follow the ranking system disturbing, Garma confided, is that that Garma displayed interest in listen- and that only applications submitted when welcoming visitors from out- sion.” He did this by surrounding leaders can voice their actual needs. farming has actually proven detri- ing to those who would approach him. before or on the deadline of submis- side the city. But as I experienced himself with personal practices that mental in many cases to education Supervisors, teachers, and support staff sion of documents would be honored. it–seeing teachers secretly split- caught the staff’s attention. Garma To address this problem, Garma in the city. Many parents keep their described him as an ASDS whom one ting the bill over expensive meals prohibited faculty from preparing implemented a series of orientation children out of school to help them can “talk to like a friend” and who “was Another challenge was to ensure that meant for me or paying for the any meals (or feasts as they would seminars on bidding and procure- work in the fields. The same parents strict but compassionate”. the SDS would honor the decisions SDS’ entertainment – it’s no longer often do) during his school vis- ment procedures for the division. tell their children that it is better to of the committee. Garma said of this, hospitable. It’s something else.” its. He discouraged the holding of To promote maximum transparency earn a small income now than to go Garma shared that his relationship “Of course, the SDS would still have large birthday parties and prepar- and empowerment, all personnel, with the people in the division was to school–a shortsighted view that final discretion on the appointment. The context of the behavior of the ing pabaon for visiting officials. He even utility workers, were oriented. born from experience and the caution gives the impressionable children in The SDS could appoint someone the teachers towards promotions was pushed for the strict adherence to The impact of the orientation would he exercised as new member of the committee did not endorse, but I tried Cabanatuan little incentive to pursue born of their financial difficul- the DepEd’s “no collection policy” come later, but the effect on the per- division: “From my cadet officer and to influence the SDS to consider the education. The cycle continues; the business background, I applied ana- negative effect it would have on our ties. Garma admitted that the sal- and discouraged selling of tickets sonnel was immediate. The people in children of Cabanatuan mature with- lytical, performance-centric approach. division’s transparency and fairness.” ary of teachers is small and that for film showings, and the like. One the ranks felt a sense of professional- out an education and resort to driv- But I also drew the ‘heart’ from my The seeds of transparency that Garma this problem has been difficult to school principal recalled this “as ex- ism and inclusion, and the focus on ing tricycles for hire and inefficient days in teaching and community rela- planted took root in the ranking sys- solve with direct augmentation. tremely motivational and touching transparency as a core value of the farming that do not contribute much tions. All these plus the fact that I was tem, particularly because of its pro- But as ASDS, he did not find this for us teachers. He said to us ‘you division was cemented. More impor- to the development of the city. To new and still learning the ropes helped foundly personal effect on many of a valid reason for teachers to resort should not be paying to entertain tantly, the school principals felt more Garma, the lack of accessible, high- me gain the trust of my boss and my those who had given up hope in the to questionable practices in order us. We are up here, we have more, comfortable that their professional quality education results in the lack of people.” Acting as a liaison between promotion system. One school leader to be promoted or to supplement we should be the ones serving you’.” responsibilities could be better met the staff and the SDS was a role that he empowerment and resources driving confided, “My teachers actually started their finances. Teachers or princi- and supported by the division. embraced fully. In this way, he was able social and economic changes. working harder. Because of Garma’s fo- pals independently collecting fees to influence several key areas of the di- cus on bringing integrity and transpar- Unresponsive School at the start of the school year and vision he sought to change. ency to the system, they have hope.” Support Bridging Leadership as a As ASDS of Cabanatuan City, Garma even profiting from the selling of ey omponent of chool saw that his work in improving education K C S film tickets for classroom activities Garma soon equated his commit- was critical to his vision of Cabanatuan as Ranking and Promotions Teacher Ethics and Based Management were, in Garma’s opinion, prac- ment to the welfare of the teachers home to empowered, well-educated citi- otivation As the ASDS was the chair of the M tices that degrade teachers’ dig- zens actively involved in economic de- of his division as manifestations of Garma spent two years, between Ranking and Promotions Committee nity. Even as they provided some velopment. He began by taking steps to Despite making a clear statement “servant leadership.” This realiza- 2006 and 2007, laying the founda- of the division, Garma found himself benefit to the teachers, they kept tion encouraged him to find crea-

78 79 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

tion for transparency and empow- teachers’ organizations, nonaca- BL as “the ‘heart’ missing from Under his leadership, the construc- Garma also focused on bringing in dia- Together with initiating physical im- erment in the division through demic personnel of public schools, SBM’s highly technical approach tion of a new administration building logue and collaboration to the division. provements in the division and the influencing personnel behavior and parents-teachers-community to managing and leading schools.” was completed. Unlike the arrange- On the one hand, he had a core group radio show, Garma invested in other and practices. This foundation was associations. While the principals In January 2008, Garma shared ment in the previous office, which of principals who were undergoing new initiatives to build on the enthu- critical to Garma’s mission of im- are comfortable in discussing their with the 64 school leaders of the featured a totally open floor plan, the formal training in the BL framework. siasm of the division staff. He held new building featured separate rooms On the other hand, he tapped previ- weekly meetings that encouraged proving education in Cabanatuan needs and plans amongst them- division his experience as fellow of and sections for specific departments. ously unutilized opportunities in order personnel to voice their problems through the efficient implementa- selves, they had much to improve the program and solicited applica- Each department room was clearly la- to bring transparency and participa- and concerns, allowing them to solve tion of School Based Management in collaborative leadership. Garma tions for the first batch of princi- beled in order to identify the person- tion in education to a wider audience. many less complex concerns on the (SBM), as mandated by Republic described the principals’ weakness pals to be formally trained in the nel’s functions and responsibilities. A Garma accepted an offer by an owner spot. Every end of the month, a fel- Act 9155 in 2001. The Depart- as similar to that of the SBM sys- BL framework. After a rigorous visitor service lounge was placed at of a local radio station for a 90-minute lowship activity brought the whole ment of Education and its school tem: “The SBM is a very techni- selection process, the 15 principals the entrance so that parents, teachers, slot every Wednesday night for his own division together. Garma recognized divisions should function primar- cal framework that guides school were admitted into the first batch and principals could make themselves radio show, dubbed “DepEd Hour.” “employee of the month”, as well as a ily in support of their component leaders how to do everything–fun- of trainees. The same set of school comfortable while waiting for their Through the show, Garma would in- suggestion box open to all employees schools through development and draising, financial management, leaders would form Garma’s “core turn to be served. Also, a new front vite school leaders and teachers to talk and visitors. In return for lifting the implementation of education de- curriculum development. and group” in piloting BL as the prima- entrance facing the city’s main high- briefly about their respective schools employees’ spirits, Garma found that velopment plans, personnel man- many others. But what SBM does ry method of delivering SBM. way was built, with a large signage to and plans. The program, which still the division personnel began to “co- identify DepEd Cabanatuan. airs to this day, discusses different top- own” the issue of quality education agement and development, man- not teach is how to first frame and ics every week, ranging from student within their specific functions. Santos agement of division funds, and own the school’s problems, and Turning Point: from ASDS The effects of the physical improve- health to parent involvement. All lis- described the involvement of the of- supervising schools’ operations then involve the community.” to SDS ments to the division were deeply felt, teners from within or outside the di- fice personnel in co-ownership, and compliance with accredita- especially by the personnel and offic- vision are free to send their questions tion standards. Based on the same In late 2007, Garma was given the In September 2008, a major turning ers. Emma Santos, administrative of- and suggestions via SMS. “We have begun implementing Act, the school head or principal opportunity to participate in a fel- point came in Garma’s leadership ficer of the division, witnessed these new, more specific performance will determine school-specificlowship program offered by the journey–he was appointed new Su- changes and their effects on the staff, The radio show was instrumental in matrices for the non-teaching establishing Garma as a different kind staff. The previous practice was concerns such as a school’s vision, Asian Institute of Management. perintendent (SDS) of Cabanatuan mission and objectives (VMO), The program was based on Bridg- “Sir Malcolm’s first project as the of leader. Instead of keeping his dis- to use a generic performance ma- City Schools Division. Garma was SDS was to truly give the divi- tance as SDS, Garma made himself trix, which did not motivate the curricular implementation and ing Leadership (BL), a framework grateful and excited of his appoint- development, personnel develop- based on the use of dialogue, mul- sion an identity. When we were easily accessible to all. Even the radio personnel to perform well within ment, especially of the many plans still sharing an entrance with station’s owner, the former city mayor, their responsibilities. Through Sir ment. and the physical develop- ti-stakeholder processes, and col- he had in line for the division. the (Nueva Ecija) East Central was pleasantly surprised that Garma Malcolm’s efforts in cultivating a ment of a school facilities. Garma laborative leadership. Garma im- “When I was an ASDS, I was lim- School, nobody knew that DepEd was the first Cabanatuan schools di- BL perspective, the staff members recalled his first months as ASDS mediately saw two benefits of BL in ited to persuading and encouraging Cabanatuan existed. Ask a tricycle vision officer to ever accept his offer are open to working with the new as “a daily effort in preparing the his work as ASDS of Cabanatuan people, and smaller-scale imple- driver to take you to DepEd Ca- for a radio show. Garma coupled this matrices and performing job- whole division to strictly adhere to City schools division. First, BL mentation of programs. Becoming banatuan and he would bring you with his constant dialogue with the specific functions, even if it repre- the (R.A. 9155’s) mandate of SBM could be used to instill and main- an SDS meant that I could move to the provincial office (DepEd division’s schools to cement the cul- sents a radical change in the way and adopt it as the framework for tain a culture of transparency, ac- into actually instituting change in Nueva Ecija, which is also in the ture of transparency and participation we do things. city). Because of the new façade in the community. The school leaders the division’s efforts.” countability, and participation in the division by enacting policies the support staff of the division. and signage, more and more peo- and teachers were, for the first time, “In the end, the staff and I see that would ensure that transparen- ple are now aware of our service. faced with an SDS who spent his time that what Sir Malcolm has en- The thrust of R.A. 9155–school Second, the school leaders could cy and empowerment truly become head empowerment, and transpar- use BL to generate the same trans- really listening to their concerns. They couraged us to do through high part of who we are and what we do.” “Having rooms per section (de- collectively felt that if Garma could quality and professional work is ent and accountable school based parency, accountability, and par- partment) of the division seemed reach out to his people, so could they to be better servant leaders. Even management—were not without ticipation in their respective com- As he did during his stint as ASDS, simple and logical at first, but it to their own communities. the clerks who were known to challenges. A particular point in munities. Garma started by laying a strong gave each member of the division be unapproachable have become R.A. 9155 was difficult for the foundation for a new DepEd Caba- immense pride in their work. The From Physical much friendlier. We all see teach- principals: establishing school and Garma was convinced that BL professional-looking signage out- ers, principals and parents as cli- natuan. The first issue he addressed Improvements to Human community networks and encour- has great potential in addressing was professionalism within the di- side every room made us feel that ents whose students and children Performance aging the active participation of SBM’s weak point and described vision. our work was important.” we are responsible for.”

80 81 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

Instituting Positive changes he started as ASDS, especially “Ang Guro, Magturo” (Teachers Must feeding program called “Power Lu- of the importance of values education BL framework was helpful in bring- those concerning transparency. Edu- Teach) campaign, which included ad- gaw.” He encouraged parents to raise by reasoning that children left unedu- ing out SBM’s spirit of transparency, Changes in Individual cation Supervisor Virginia Sy-Domin- hering to “no collection policy” and funds for rice to be stocked in the cated are more prone to becoming de- local accountability and participation Behavior go, a member of the ranking and pro- discouraging non-educational ex- schools. The teachers would then pre- linquents and criminals that would in their communities. It also allowed motions committee, was one of many tracurricular activities such as film pare lugaw using the rice and existing plague the city in the future. them, through dialogue and observa- The clarity in specific individual re- who experienced and carried out the showings (and the selling of tickets vegetables from the previously imple- tion, to identify which particular as- sponsibilities was something that Public change firsthand, for these). This move was appreciated mented “Gulayan sa Paaralan” (Veg- Finally, Garma’s commitment to pects of their school required the most Schools District (I) Supervisor (PSDS) across the division by school leaders, etable Garden at the School) program. change in the division was capped with attention: Nora Pineda appreciated. To her, SDS “In my primary function as most of who were troubled by the The feeding program was a success, major developments that represented Garma’s effort in instilling BL mindset Education Supervisor and con- many interruptions in actual teaching with many of the schools following the start of truly transparent and re- Honorato C. Perez Memorial Science was both effective and inspiring, current ALS coordinator, I had and learning resulting from the old an ideal contribution scheme: parents sponsible use of the Special Educa- High School: Principal Teodorica Palomo become used to schools asking practices. Garma described the cam- who were mostly busy at work but tion Fund (SEF) of the division. Under “Since Sir Malcolm took the helm me to visit them only when they paign as one that focuses on making earned a larger income would mainly his leadership, a new school building “The framework helped me lead as SDS, my duties as a district su- were sufficiently prepared to pre- education constant and accessible to contribute in cash; while those who for each of 47 schools in the city was with both heart and mind. As a pervisor became well-defined. sent well; they thought that I was children leading to improved academ- were less gainfully employed helped built. Totaling 125 new classrooms, science high school, we should be I clearly know my role of coor- around to be impressed. Under ic performance of school children in the teachers cook the food and feed the the buildings were completed through committed in producing the most dinating, providing professional Sir Malcolm’s leadership, I am Cabanatuan. children. More importantly, the feed- construction and labor counterparts proficient graduates, especially assistance and instructional free to visit schools and ask them ing program attracted many parents provided by Cabanatuan mayor, Alvin in math and science. It has long leadership to the ten schools in ‘can we be of help to you?’ I feel In addressing the problem of parents of lower income families to send their Vergara. Several schools also received been a problem that, out of pity, my district. In short, my role has that I am serving more. The same keeping their children from attending children to school, where the children SRA Reading Lab kits, costing PhP the school would admit fresh- been to empower the principals goes for my work as a member of school, Garma found the Stakeholder were assured at least one nutritious 19,000 each, in line with the division’s men and advance other students in my district. Because of the the ranking committee–we don’t Analysis from the BL framework a meal. The program was so successful thrust to improve reading skills across through the years even if they new approach within the divi- need to be entertained (with gifts critical method in designing creative that one principal, in jest, shared that all grade levels. The school leaders wel- lacked the most basic reading sion, I can focus on this without and food). We knew that our ways to bring children in Cabanatuan many children were in school for the comed these developments for they skills. I have learned to be com- having to do specific class obser- focus was on servant leadership back to school. “To me the parents sole reason that they will be fed, “The were the targeted needs that the school passionate but firm in dealing vation (which is the responsibili- and that meant being fair and from the rural or farm areas are stake- challenge for me and my teachers now leaders themselves identified and they with these students and their par- ty of the Education Supervisors). just. Our work in the committee holders,” said Garma, “but they were is to actually convince these children represented the transparent use of the ents. This is something I am try- is very tedious, but the honest stubborn ones, partly because they that they are in school to eat and to SEF. To quote one principal, “We felt ing to instill in my own teachers, “Introducing BL as a way of service we render in producing too were uneducated. I thought of at- study. It’s difficult, but it’s definitely like our bosses were truly listening to that the quality of our students is strengthening SBM among the the open ranking is instrumen- tracting the children instead as an in- better than before. We’ve reached out our specific needs. The division, at that something we cannot negotiate. school leaders has made my tal in raising the morale of the terested party in their own education.” to a lot more families through the point, seemed much more effective be- role more productive. SBM is teaching staff.” He focused on attracting the children feeding program.” cause we could see that our SEF was “Our school’s environment, however, important because school lead- by encouraging each school to build a being spent wisely and judiciously.” leaves a lot of space for collaboration ers should be well versed in all Indeed, Garma’s successful institution playground in their premises (Palaru- After addressing the children’s health on things that are more flexible. We aspects of school management. of good practices based on transpar- an sa Paaralan). The idea of making and motivation through the Palaruan School Principals as have a lot of deserving students who When BL was not yet present ency and participation empowered schools a place of fun and learning and Power Lugaw programs, Garma come from lower income families. The to help principals tackle con- the non-teaching staff of the division. worked as children gradually became focused on reintroducing traditional Bridging Leaders same parents are often the ones who flict resolution and community More so, the principals and teachers, the ones convincing their parents to values and culture through the pag- think that the government will come in Garma’s support to the school leaders involvement on their level, they who saw their supervisors carrying take them to school. mamano and Laro ng Lahi campaigns. and fund everything. Through a multi- through new programs and resources were always dependent on us out examples of ideal leadership, were School principals were encouraged to stakeholder process of presenting my was not meant to replace the hands-on (supervisors.) Now, they make motivated to carry out the same prin- Garma did not give up on directly in- include traditional Filipino games such specific SBM vision – that of a science management the school leaders would most of their decisions them- ciples in leading their schools through volving the parents in increasing the as patintero and sungka in their physi- high school that exists in its quality and provide their respective schools. In selves, in consultation with their a combined SBM and BL approach. enrolment. Using dialogue, he was able cal education and sports curriculum. facilities, not only by its name – the fact, the school leaders were given respective PSDS. In the future, to speak to school leaders and parents Likewise, teachers promoted the prac- school was able to gain the commit- freedom to apply the BL framework we aim for true independence in through various parent-teacher-com- tice of pagmamano and the use of po ment of barangay officials to improve Instituting Changes in they learned in order to customize the spirit of SBM.” munity associations (PTCAs) to come and opo as a response to the increasing security in the area, and we raised PhP abanatuan s chools the new programs depending on their C ’ S up with a multi-stakeholder solution exposure of children to contemporary 100,000 in a week of fundraising from community’s environment and need. Garma would be recognized as SDS to the problem. In their discussions, values from television, video games, various sources. BL also gives me the In line with changes Garma instilled In particular, Garma’s core group of who followed through on the many Garma shared with the teachers and and the internet. Garma convinced confidence to seek out sponsors for our in the division, he developed the 15 school principals found that the parents the idea of a supplementary faculty and the parents in Cabanatuan indigent students’ school supplies.”

82 83 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

Through the BL framework, school Personal Change and ment rate and average NAT scores in the LGU to pass this and other edu- pal, agreed, and added that the mem- for district supervisors and other non- leaders found a way to promote SBM the next 2-3 years. However, the over- cation-centric efforts into law, so that bers of the division should not lose sight teaching personnel. However, he ad- hallenges initiatives to the greater community. C whelmingly positive feedback from the policies we institute will live on of who they are working for: “Should a mitted that as much as he would like to Likewise, the collaborative nature of BL the schools indicated that the division through future changes in leadership.” different SDS come in, perhaps, even design and run these programs by him- The members of DepEd Cabanatuan– supported SBM by opening the schools is on the right track. Intangibles such one who might not be as idealistic as self, his busy schedule as SDS keeps him principals, teachers, and non-teaching and their leaders to innovation: as the increase in morale of division Garma’s loyal group of leaders volun- Sir Malcolm, I will not forget that in from doing so in a timely fashion. “I’ve staff–are all quick to place Superin- personnel and the renewed enthusi- teer their own commitment as a way my school, I have 24 teachers, over a thought of this too, and think that in the tendent Garma at the center of what Mayapyap Elementary School: Princi- asm teachers and principals feel for to keep the spirit of bridging leadership thousand students and a community to future, I can use BL to train my supervi- they all agreed to be a new era for the pal Mercy Cariaga their work were acknowledged as im- alive, regardless of whoever takes the serve. In the end, my commitment is to sors to take my leadership down to their division. Garma himself attributed his provements in their own right. reins in the future. Santos, the admin- the community and the children. I can level,” he confided. “But I will still make success to the convergence of all his “Realizing that the parents are key istrative officer of DepEd Cabanatuan still do something about it.” time to personally visit schools along past leadership experiences. “In UPIS stakeholders in our schools, I’ve Not to be overlooked is the inevitable and one of the coordinators for Gar- the way, as I always have.” When told and UP Diliman especially, I was used learned to make them feel important. conflict and risk that faces a leader ma’s taxpayer responsibility initiative, Garma himself agreed that at 38, there that his hands-on, personal approach to looking after people and engag- Even small gestures of praise for their whose basic principle is transparency. believed that the staff’s responsibility are still plenty of opportunities for to his people drew constant praise from ing in dialogue, so I approached my help go a long way in ensuring their Garma was the target of threats when is to widen the net of people they in- him to experience greater responsibil- the division, Garma responded with role as an ASDS in the same way,” he cooperation to move forward. BL pro- he instituted new division-wide prac- volve, noting that “these changes were ity. Currently, he hopes to sustain the the same humility: “I want them to tell said of the beginnings of his stint in cesses have breathed life into SBM by tices concerning professionalism and all about building strong relation- gains made by the division from the a story of their own success, that they DepEd Cabanatuan. “What changed opening the school up to greater in- the more focused performance assess- ships among all stakeholders and tap- BL framework by formally training the worked on the ground to make this di- over time was the awareness I had of volvement. One new program, a CD- ment of division personnel. Garma re- ping their various resources.” Cariaga, next batches of school principals. He vision a success. I’m here to serve them, what I was actually doing.” Garma at- ROM of lectures and review materials alized that as a leader, he could expect Mayapyap Elementary’s young princi- is also considering formal BL training but they are the stars of this show.” tributed to the BL framework, “put- for the National Achievement Test rough times. “That’s what leaders face,” ting structure to my own idea of dia- (NAT), came from a member of our he concluded. “It’s all part of the job.” logue and collaboration, allowing me IT support staff. We are looking for- to share the same concepts with my ward to more new projects as a result people through training.” According Sustainability and the of the community’s new culture of co- to him, the framework also pushed owning education.” Future him to identify new stakeholders and design extensive and innovative cam- Sustainability remains the biggest Finally, the skills and processes that paigns–the DepEd Hour radio show challenge for a division that attributes the school leaders gained were in- being a prime example of identifying its success to its leader. Should Garma strumental overcoming their deeply new spaces and widening his reach. be assigned to a larger division, how ingrained traditional perspectives of Finally, the fellowship program itself will transparency, empowerment and being a school leader: was a source of inspiration for him, professionalism persist in DepEd Ca- more than anything. He was motivat- banatuan? Camp Tinio Elementary School: Princi- ed with the knowledge that he could pal Marcelina Arenas turn to his fellow leaders if he needed One way he has ensured this is by ex- advice in certain areas or just wanted panding the division’s efforts in edu- “BL has changed my perspective of to share his own progress. cation to associated activities such as gaining my teachers’ cooperation. I advocating responsible payment of admit that I was once one-sided and Garma acknowledged that a challenge taxes. “He has proven through trans- had preconceptions of teachers whom he has faced as SDS is the lack of im- parent spending and the many edu- I thought were against me. But after mediately measurable data to indicate cation improvements in the city that engaging these teachers one-on-one, the success of his programs, most of taxes, which contribute to the SEF we understood each other better. At- which were based upon setting up pool, are crucial in developing the titudes have changed in the school. new practices and abolishing coun- next generation,” said Councilor Tina As a principal, I no longer subscribe terproductive ones. Even programs Wycoco-Paulino, who worked closely to the old idea of getting what I want. that represented direct contributions– with Garma on the contract for the 47 Through dialogue and servant leader- such as the 47 school buildings and new LGU-constructed school build- ship, we continually achieve results the SRA kits–are expected to affect ings. “He has also been working with that the whole community wants.” performance indicators such as enrol-

84 85 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

My Leadership Story and the Journey of as merely their means to provide for my experience as a military leader. As a the Sangguniang Bayan in one session Santa Fe to Change their families. As such, the bureau- military cadet for three years, I learned with them, but they did not pass the cracy was slow and incompetent for it to follow orders and as an officer for 11 appropriate ordinance. always settled with minimum require- years in the Philippine military, I learned rience of interpersonal dialogue that ments, which stood against the out- to give them. I was also a scholar at the As early as the start of my first term, it Background and Entering led to the resolution of problems and put-oriented leadership that I insisted. Royal Military College in Canberra, Aus- was clear that there was so much to be Politics issues in a family setting. Pastor Rice The municipal government had lim- tralia for a year and a half, and that expe- done. I knew then that the journey to also gave us other leadership lessons ited programs and services addressing rience added perspective to my military change would be painstaking. I want- I was first elected mayor of the Mu- such as tempering discipline with un- the livelihood, education, and health life. Assigned to the front lines, I faced ed to start right away, even if I really nicipality of Santa Fe, Nueva Vizcaya derstanding, strength with empathy, needs of the people. These services anti-government forces in Samar and did not know where to begin. in 2004. The upland community has and courage with wisdom. Unknown were seldom done in collaboration Leyte, both poverty-ridden provinces about 3,200 families spread over 400 to me, such experience would leave with other sectors of the community. with long history of rebellion and siege. Personal Change square kilometers of mountains and permanent mark on my person, one rivers. Access to schools and health that would become evident in my ap- Third, the residents had a dole-out While military life indeed taught me Little did I know that the journey to- centers remains a perennial problem, proach to community service later on, mentality. They expected and even de- many things, chief among which are wards change has to begin with me. while farming in the mountainous ter- as mayor of a town. manded an increase in financial dole- teamwork and camaraderie, it taught rain continues to be a challenge. Local outs as political payback for their sup- me little about engaging in constructive The Bridging Leadership program government figures in 2007 recorded It was in 2004 that I chose to run for port at the polls. discussion and dialogue. In the mili- that came to Santa Fe in 2006 and my about 570 households living on less mayor. I won by a slim margin of 120 tary, whenever orders are given, soldiers consequent inclusion in the Bridging Florante Gerdan than PhP 5,000 a month (classified as votes. Shortly after assuming office, I Fourth, nobody could tell me how are expected to obey without question. Leadership Fellows Program in 2007 very poor), while about 810 house- saw the challenges the municipality of many of the families in Santa Fe, which Moreover, we were target-fixated and helped me realize this. Municipal Mayor holds averaged PhP 5,000 monthly Santa Fe and I were up against. had a population of about 14,000 were output-oriented. Our main priority was Santa Fe, Nueva Vizcaya (classified as poor). Over 1,300 house- poor because statistics were unreli- to get things done at all costs. In terms of skill, Bridging Leadership holds earned between PhP 5,000 and able, outdated, and incomplete, re- taught me that one of the skills that I My First Term PhP 7,000 a month, considerably search being virtually non-existent. I was guided by this mindset during had to learn as a leader is to listen. It my first term as a mayor: I would in- lower than the PhP 11,271 monthly During my first term as Mayor, I con- is important that I don’t blow my top poverty threshold set by the national Burdened with such challenges, at sist on meeting targets and delivering right away. Leadership became easier fronted many challenges. First, due to that time I thought that the best way outputs, over having good and mean- government for the province. prevalent political harassment and di- for me when I started to listen because to proceed was to rule with an iron ingful relationships with my fellow of- through listening I won the trust of visiveness under the previous adminis- fist. I lost my temper a lot and scolded ficials and staff. I always pushed hard I never imagined I would enter poli- tration, I faced a bureaucracy steeped the people and showed them that I tics, much less become mayor of a department heads and employees for for accomplishment; even if most of acknowledge the fact that they had in patronage politics. The residents failing to meet targets and outputs. I the time I was being too unreasonable town where I did not come from were unwilling to work with govern- something to share. It also opened up originally. My father was from the did not bother to forge good relation- and demanding. possibilities for working together to ment.. Typically, supporters of the los- ships with the people in the bureau- nearby province of Ilocos and my ing candidate would refuse to work achieve what we all shared. I was able mother from a neighboring town in cracy, much less with the opposition On top of all of these, the Sangguniang to build new, stronger, and more pro- with the winner. Furthermore, the because I believed that I did not owe Panlalawigan2 suspended me for two Nueva Vizcaya. When I reached high Sanggunian Bayan1, which the oppo- ductive relationships with the stake- school, my parents sent me to Santa it to them: I strongly felt that they did months during my first term for buy- holders that enabled us to work col- sition dominated, was determined to not deserve my efforts to engage and ing a bus that would provide college Fe where I lived with Pastor Delbert take exclusive control of the appropria- laboratively to achieve greater results. Rice, a Methodist missionary who had work with them. I thought that if they students of Santa Fe free transporta- tion of Santa Fe’s Internal Revenue Al- didn’t like to work with me, I didn’t tion to their schools in nearby towns. stayed in the municipality for a long lotment of more than PhP 30 million. On a deeper level, Bridging Leader- time. Pastor Rice had other young like to work with them either. I had secured authorization from the ship gave me the opportunity to step This write-up, based on Florante boys under his wing; evening meals Municipal Development Council to back, reflect, and ultimately link my Gerdan’s firsthand account, was Second, the bureaucracy was com- were punctuated with animated dis- Under tremendous pressure, I resorted to use savings from the 2004 Municipal own sense of personal purpose to written by Philip Francisco U. Dy placent, and the employees were not cussions. These gave me my first expe- overbearing tendencies, which I believe Development Fund for the purchase. my role as mayor. Being the mayor of of the AIM TeaM Energy Center motivated. Employees saw their work can be traced to having a hangover from I had also obtained the approval of Santa Fe is a difficult responsibility. I for Bridging Leadership under the supervision of Prof. Ernesto

D. Garilao, faculty at the Asian 1 The Sangguniang Bayan is the legislative body in the municipal level of the Philippine local gov- Institute of Management. ernment system. 2 The Sangguniang Panlalawigan is the legislative body in the provincial level of the Philippine local government system.

86 87 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

found out that if that was all there was many stakeholders of Santa Fe into the cent development fund obtained from we also initiated numerous barangay resources necessary to meet the targets. environmental conservation. In fact, to it, if being Mayor was mere respon- process of participatory development as the Internal Revenue Allotment should consultations and sectoral summits the participation of local leaders from sibility for me, then I have a million this was the only way we could realize a be spent. For many years, this was not where the people of Santa Fe were By mainstreaming participation and various sectors in governance was in- reasons to quit: I get into fights, my better future for the municipality. followed in Santa Fe. The development given opportunities to articulate their opening both formal and informal stitutionalized through the creation own personal safety is jeopardized, I fund used to be appropriated at the key concerns and identify possible channels to citizen involvement, I of PART5 Santa Fe. PART meets regu- lose time with my family, and I am not We encouraged stakeholder participa- behest of the mayor and was rubber- programs that could be implemented increasingly had to let go of the top- larly and discusses matters pertaining even compensated that well. tion in government bodies and pro- stamped by the local legislature. Pro- collaboratively. down command that I was used to, to the development of Santa Fe that cesses, which was, in fact, the brand of jects were determined and planned given my military background. It was can be brought to the attention of the But the moment I was able to connect participatory development promoted under the sole authority of the Mayor. We conducted a development summit, not easy. Unlike top-down decision- local government unit. At the start, I my being mayor to the strong sense of by the Local Government Code of an education summit, and a health making characterized by swiftness convened and chaired the meetings service that I have always possessed as 1991. The Code stipulates that repre- Then, during my second term, we summit, among others. and relative ease, participatory gov- of PART. However, in order to make a person, the work and responsibility sentations from various sectors should started to bring in the non-govern- ernance could be tiring and frustrat- PART independent from the local became its own rewards because I saw be guaranteed in local legislative as- ment organizations, barangay3 cap- Overall, the effort to encourage and in- ing. Moreover, it was imperative for government unit and be an effective how my job as mayor truly served the semblies and local special bodies, tains, and representatives from sectors stitutionalize people’s participation in me to demonstrate that participation mechanism for check and balance, I people. The challenges became worth that is, women, agricultural workers, of agriculture, the elderly, education, governance was our way of implement- was not a futile political exercise at decided to no longer be directly in- addressing, as these are the challenges urban poor, disabled, or indigenous health, and indigenous peoples to lo- ing “right-to-left planning.4” Everyone all, but an actual step forward in de- volved in its operations. that I had to overcome so that I can cultural communities should be put cal government bodies and processes. concerned first set overarching objec- livering results. I particularly had a truly serve the people. In undergo- in local health boards, peace and or- In doing so we were able to revolu- tives, after which the strategies to meet hard time convincing the Sangguni- Although we were making tremen- ing personal change, I became a serv- der councils, school boards and–more tionize and make participatory the ap- these goals were determined. Whenever ang Bayan–with whom the approval dous headway in getting more external ant–not mayor–first. This is why I importantly–local development coun- propriations of our municipality’s lo- I engaged external stakeholders, I made of the budget rests–that participation stakeholders to participate in govern- now stand on one of my most power- cils. The Code also mandates public cal development fund, among others. it a point to ask them not only why would enhance their political capital ance, I noticed that my own bureau- ful convictions: losing politically does consultations in the planning and they were there or what they wanted to and that, in the end, it would pay off. cracy lagged behind; in fact, sometimes not matter to me anymore because all implementation of projects, while it I convened a multi-stakeholder coun- achieve, but more importantly, I asked conflict between external stakehold- that matters is that I maximize the op- encourages active partnerships with cil to prepare the appropriations. In- them: “How can you be part of the so- More and more, the local govern- ers and the members of my internal portunity to serve. people’s organizations and non-gov- stead of working from fixed figures lution?” and “What can your contribu- ment leaders, including I, had to learn bureaucracy erupted regarding what ernment organizations in the pursuit for each item, which was usually the tion be?” These two questions might the softer, more interpersonal style of projects to implement and how to im- As such, with the newfound ability to of development objectives, one such case, all items began with zero appro- have sounded basic, but I believed them leadership that was all about listening plement them. I saw the limits of what listen and with a renewed sense of pur- local special body allowing the direct priation, so that means of making the crucial in transforming Santa Fe poli- to people’s needs and acting on them. can be achieved if I became content pose in being a Mayor, I took on the participation of citizens is the local budget would truly proceed accord- tics. The residents are yet to grow accus- Slowly, we were able to galvanize all sec- with movement outside the local gov- same challenge of governing the mu- development council. The Code ex- ing to the needs of the people. During tomed to this new style of public discus- tors of Santa Fe: the local government, ernment unit, without addressing the nicipality of Santa Fe in my second term plicitly states that accredited people’s consultations, each sector put forward sion, a style that went beyond dole-outs. the non-government organizations, the complacency within the local govern- and started to do things differently. organizations and non-government its own projects and proposals, which missionary communities, the environ- ment unit. It was imperative for the bu- organizations should represent at least the council then assessed for inclusion The “right-to-left planning” proceeded mentalists, the farmers, as well as the reaucracy of Santa Fe to turn around. External Changes: one-fourth of the total membership of in the local development fund. by identifying key result areas and per- poor and largely illiterate community. the council. formance indicators for each objective. Internal Changes: Turning Mainstreaming Peoples’ Participatory budgeting was not easy. Baseline data for each performance in- Participation had since become Santa Participation The underrepresentation of some sec- At certain points, I had to moderate dicator was supplied alongside three- Fe’s brand of governance and came the Bureaucracy Around tors in determining how to divide the differences among the sectors repre- year performance targets relative to the to characterize the different func- To begin to understand why my bu- When I was re-elected mayor of Santa development fund of a local govern- sented. As everyone thought his/her baseline data. Each of the performance tions of the local government such as reaucracy was complacent, the first Fe in 2007, the development problems ment remained a matter of concern problem was the most important, I targets, in turn, was matched to pro- budget appropriation, conflict reso- thing that I did was to conduct a gen- that we faced remained too complex in many rural areas that functioned had to hold everything together and posed programs and projects, and by the lution, development planning, and and challenging for the local govern- under a monopoly of power–Santa keep everyone working towards the ment unit alone to handle. Consequent- Fe included. The local development same goal. ly, one of the first actions I did during council should determine through a 4 Right-to-left planning is a management tool that emphasizes the importance of clarifying the long-term and overall vision. The vision, according to the my second term was to engage external participatory process how the 20 per- Beyond what is provided in the law, symbolism that the tool subscribes to, is the rightmost end in usual texts. As such, after clarifying the vision, one should work leftwards through the mission, objec- stakeholders. I saw the need to bring the tives, key result areas, performance indicators, and finally strategies (with their accompanying programs, activities, timetable, and resources) that will all ultimately lead to the vision.

5 PART is an acronym for Panagtitimpuyog ti Agnanayon nga Rang-ay Pagiti Tattao in Ilokano, which can be translated to “Moving Together for the Sustain- 3 Village. able Development of the People.”

88 89 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

erative dialogue with all the depart- 2007. As permanent employees dur- better market price. ment heads and employees of the local ing that time refused to believe in the Meanwhile, because of the involvement government. Through the generative system, I limited its use to job order of everyone, the task of coming up with Previously, anti-poverty programs for dialogue, I found out that the main employees. a good Performance Management Sys- farmers were limited to dole-outs of reason for the inaction of my bureau- tem was not too difficult. It took the goats and chickens. Hardly were there cracy was inadequate salary. But I had the opportunity to realize Calibration Committee three months collaborative partnerships. In addi- my aspiration when in June 2008, the to finish the draft of the system. tion, farmers–most of them illiter- While I told them I respected that, I Civil Service Commission of Region ate–were reluctant to cooperate with also made it clear to them that if they 2 came to Santa Fe to inform both On 1 September 2008, the Local Gov- local government projects. There were wanted higher pay, they needed to permanent and contractual employ- ernment Unit of Santa Fe began the test no concrete arrangements between have a good return on investment. I ees that the commission had a new run of its new Performance Management the service providers and the farm- wanted the employees to realize that directive for government agencies to System, and after making few adjust- er-beneficiaries in place. Livelihood I cannot raise their salary by myself quantify and qualify the performance ments, we decided to formally launch the programs, as a result, were not intel- without their help. It is the responsi- of their employees and offices. Estab- system on 23 September 2008. ligently planned and executed, leading bility of the entire bureaucracy as the lishing a Performance Management to low return on investment. Previous only way their monthly pay can be System became an imperative. The To complement the Performance programs promoted low yield and raised is by increasing the income of commission left the decision on the Management System, the LGU of low-value crops and products made the municipality. As such, department method in evaluating performance to Santa Fe, spearheaded by a taskforce, from raw materials unavailable in the heads and employees alike must work the local governments. started to work for the Santa Fe Citi- municipality. Furthermore, marketing hard together so that the local govern- Figure 1: Result of Dialogues & Consultations zens’ Charter in February 2009. The was not carefully studied and strict su- ment of Santa Fe will be responsive At this juncture, I convened my de- Citizens’ Charter contains the list of pervision was absent. and efficient and hence maximize partment heads and tasked them to be all the frontline services that the local municipal income. In this way, not ments, increasing income and tax col- mindset from being mere employees to the Calibration Committee that would government offers, our commitment We wanted to change this set-up and only will the local government be in lections, and even properly using gov- being managers as well. lead the crafting and implementation in terms of response time for each of help farmers. For this reason, we ex- the position to increase salaries, it ernment supplies, among others. of Santa Fe’s bureaucracy-wide Perfor- these services, and the people and de- erted great efforts to understand what can also provide more and expanded The creation of Santa Fe Employees’ mance Management System. To make partments that are in charge. hindered their increased incomes. benefits to its employees. I believe that Figure 1: Result of Dialogues Association and Santa Fe LGU Man- the process of designing the system this was pivotal in turning the bureau- & Consultations agement paved way for the current participatory, we involved the rank In the end, it was when external and From our studies and conversations cracy around because it changed their implementation of Performance Man- and file, the job order employees, and internal positive changes finally co- with the farmers, we learned that the motivation from targeting higher sal- Eventually, I also personally helped or- agement System. The system enumer- the department heads. Everyone was incided that the opportunity was ripe traditional tendency to keep chickens aries as the end-goal to first ensuring ganize and formalize the employees’ un- ates and categorizes all tasks of each asked to list down all his/her tasks, for us to transform institutional ar- in one’s own backyard was actually that everyone does their share to make ion, placing them in a better position to employee; it indicates the maximum which were then reviewed together rangements toward introducing a new counterproductive because not only the local government perform its re- clarify their grievances and have these time allotted for completion of in- and assigned corresponding points. anti-poverty program and reviving an do chickens destroy farmers’ produce, sponsibilities in the best way it can. prioritized by the management on a dividual task and the points earned The idea behind the system was to old tradition for conflict mediation. but the cost of feeding them is actually regular basis. The transformation of our when the task is completed. make explicit the level of effort that higher than the actual market price of Through the dialogues, we reached a local government bureaucracy included each employee puts in every task to New Arrangements in Action: The An- the chickens. We also learned that our management-employees’ union agree- the creation of the Santa Fe Employees’ As early as 2004, I already raised the earn the required 8 points per day. ti-Poverty Program and the Strength- farmers did not diversify their crops, ment that covered various areas, rang- Association for the rank and file em- idea of measuring the performance of ening of the Tongtongan System making them extremely vulnerable ing from salaries to tax collection. I ployees and the organization of the San- every employee in an objective man- Eventually, the system made it possible to external shocks such as typhoons. increased salaries across the board, ta Fe LGU Management for the elected ner; installing a Performance Man- for us to determine whether the work The success experienced in making Finally, we learned that our farmers added loyalty pay and hazard pay, and officials and the heads of departments. agement System was my goal and force in an office or in a project exceed- institutional arrangements more in- actually had a lot of idle time and that included a bigger 20-year pay for lo- Institutionalizing these bodies did not aspiration. Nevertheless, I met stiff re- ed the need. For example, if my driver clusive and participative was most evi- the contribution of family members to cal government veterans. However, in only facilitate better dialogue between sistance from almost all employees so wanted to earn the required number of dent in the changes made on our anti- farming activities was not maximized. return, I insisted on outcome-based the management and the union; more that the idea was shelved at that time. points, he could not merely drive me to poverty program. This was important planning for all local government de- importantly, it facilitated the sharing of and from the office and just sit around to me as poverty reduction and liveli- Based on the findings, we set aside partments. I also insisted that each responsibilities by the two bodies that Upon my re-election in 2007, how- for the rest of the time. To meet the hood generation have always been my PhP 1 million for the anti-poverty employee must be able to show objec- met regularly for comprehensive bar- ever, I was determined to put up a required number of points, he had to top priorities. It is also my goal to in- fund devoted to providing strategic tively that they had done their part in gaining agreements and other matters. Performance Management System for find other ways to be productive, such crease the income of farmers, primar- loan support to deserving farmers. promoting tourism, attracting invest- The inclusion of department heads as job order employees. I designed one as driving for others or doing errands. ily through crop diversification and An anti-poverty team consisting of lo- part of management has changed their and started to implement this in June

90 91 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

cal government representatives from when people always turned to me for This practice differed from the previ- Initial Results ers to approach the local government 85 percent of indigents, from 60 per- the departments involved in social answers whenever problems arose. ous one when farmers were given all for assistance in the procurement of cent. We plan to increase coverage to welfare, agriculture, economic enter- the inputs at the start, leading them to Given the changes initiated in the construction materials for schools, now between 95 and 100 percent in the prises, development and planning, as Under the new anti-poverty program, sell most of these inputs one the crops operations of the local government, there is no need to ask for what is need- succeeding years. In addition, our well as the Mayor’s Office, determined instead of the regular dole-outs of goats failed. working with other local stakehold- ed because it is simply provided, thanks rural health units are now open 24 the appropriation. The anti-poverty and chickens, each family was encour- ers, and providing services, especially to the greater sharing of information hours a day, 7 days a week. team met every Wednesday to discuss, aged to apply for assistance. Thereafter, Further, under the new system, as soon as poverty alleviation programs for our among the education stakeholders, monitor, and deliberate on livelihood the Municipal Social Welfare and De- the crops were harvested, the local gov- farmers, we began to see initial results based on the new relationships. Conclusion issues affecting the 16 barangays of velopment Office endorsed the appli- ernment, through the Municipal Eco- and small victories. Santa Fe. cant family to the anti-poverty team. nomic Enterprise Office, accompanied Simultaneously we worked with Jol- At this point, I can say that the people After validating that the family was in- the farmers when they sold their prod- In terms of reforming the bureau- libee Foods Corporation in providing of the Municipality of Santa Fe and I The team’s primary goal was to ensure digent and had been given orientation ucts. This move was strategic because it cracy, we saw how the creation of agro-enterprise trainings to our farm- had gone a long way. Though far from that no one in Santa Fe remained poor regarding the project, the applicant gave the local government the oppor- the Santa Fe Employees’ Association ers. The farmers included in our pro- perfect, our new brand of governance is or went hungry. To this end the team family was asked to list its regular farm- tunity to collect payments for loans and and the Santa Fe LGU Management, gram were on their fourth of eight steps a work in progress, especially since the worked together to make sure that ing activities so that idle time and the interest, as soon as the farmers had cash together with the newly introduced in the “mastering process.” They went goal of comprehensive participation that the people were provided appropri- present contributions of the different in hand. We learned it was hard to collect Performance Management System, to Manila as part of their training and we are slowly institutionalizing has yet to ate economic opportunities. We also family members could be determined. payments when farmers already spent improved working relationships in the met potential institutional buyers of be translates into quantifiable results. ensured that the problems were an- Such information were vital in deter- the money received from selling their local government. At the same time, their products, among them mall out- swered without delay by meeting for mining what else the family could do produce as this only increased their in- the performance of our local govern- lets and distributors in wet markets. Nevertheless, we remain committed urgent concerns on days other than to augment its income, aside from the debtedness and made them even poorer. ment in almost all fronts of service to the changing politics in Santa Fe so Wednesday, if need be. usual farming activities they engaged provision has become better because On the environmental front, we part- that true empowerment, as evidenced in. It is then asked to come up with a We also applied this participatory mod- the employees are now more produc- nered with the Philippine Rural Recon- by participation in governance, can be The team met regularly with religious livelihood plan. Also crucial to the pro- el in the empowerment of indigenous tive and efficient. Aside from our own struction Movement to implement a par- achieved. We remained hopeful that organizations that provide relief goods cess were the interviews conducted by peoples, since Santa Fe is an indigenous beneficiaries being satisfied, many ticipatory forest-management program the changes initiated thus far would be during emergencies and calamities, co- the local government departments and community. I spoke Ikalahan fluently residents of neighboring municipali- with a livelihood component for some of carried over, even after my term. operatives and local banks, provincial- the representatives of the training pro- and, in fact, I considered myself part of ties began to avail of our services. our farmers. National government line level government representatives from grams, including values orientation, for the Ikalahan tribe, a sub-group of the agencies, such as the RDA, TESDA, and I have no plans of being a politician trade and industry as well as agrar- the whole family. Once the anti-pover- larger indigenous peoples of the north- After making governance a shared DTI, participated in this project. forever even as I would dare admit that ian reform, representatives from the ty team approved a family’s livelihood ern Cordilleras stretching as far as Ben- responsibility, we began to enjoy bet- part of what changed me throughout regional office of the Department of plan and proper validation done, the guet and Ifugao Province. One of my ter working relationships with various We are beginning to see how these ef- my leadership in the journey of Santa Agriculture and the Technical Educa- Municipal Agricultural Office (MAO) core interests is strengthening the tong- stakeholders and attracted new part- forts to make the bureaucracy more Fe towards change was the absence of tion and Skills Development Authority provided the necessary technical assis- tongan system, the traditional system of ners. For education, an agreement was responsive and collaborative with fear in losing. Winning ceased to be (TESDA), and with representatives of tance, guided, and monitored the pro- conflict resolution among the Ikalahan. forged among the three main education various stakeholders are reflected in my main concern and this attitude non-government organizations for co- gress of the family each step of the way. As they had been doing for centuries, stakeholders: the local government, the the lives of the people in the grass- freed me to do what I had to do and to ordination and additional support. the Ikalahans often resolve their prob- Department of Education, and the par- roots. The repayment rate of the do what was right. I also realized that The major steps that an indigent appli- lems by presenting them to an informal ents. The good working relationship of successful beneficiaries of our anti- because I have personally changed, so Another important feature of the an- cant family must undergo to avail of council of local elders. The accuser and these three groups enabled them to help poverty program on its first semes- have the people around me. ti-poverty team was the rotation of the anti-poverty assistance are as fol- the accused would stand before the in- the students do better. As testimony to ter of implementation, for example, presiding officers during the team’s lows: first, the applicant had to prepare formal council; before which, acknowl- better working relationships, I made it was 95 percent. As of February 2009, Inspiring people by being true to my- meetings; I did not chair the team’s the land before MAO could release the edgement and acceptance of conflict a point to provide construction materi- we increased the profit of our farm- self and believing in and upholding meetings all the time. The assigned seeds. Next, the fertilizers were issued was both immediate and straightfor- als for all the schools during the Brigada ers by PhP 4 pesos per kilo of beans, justice despite the limitations, I real- presiding officer on a particular meet- once it was verified that the seeds had ward. Under the traditional system of Eskuwela6 conducted in preparation for bell pepper, carrots, and tomatoes. In ized, was highly possible, then helping ing was expected to set the agenda of indeed grown. At every stage of the conflict resolution, there was no room another school year. While formerly it terms of health, we managed to in- not because one had to obey orders the meeting. This arrangement rein- planting, the release of the succeed- for denial; acceptance was a prerequi- was an ordeal for education stakehold- crease PhilHealth coverage to about but because one was inspired to help. forced our commitment in sharing ing farm inputs depended on the suc- site. We began to document the tong- the responsibility of helping the farm- cess of the previous stages. Thus, what tongan system process and encouraged ers and that we all had to contribute were provided were only the materials the involvement of the youth in learning towards this end. This arrangement and help needed, and only those that this important process of governance to 6 Brigada Eskuwela is a yearly undertaking, initiated by the Department of Education in 2003 where local volunteers contribute time and resources to physi- was different from that of the past consistently worked were supported. ensuring its sustainability. cally prepare their schools for a new school year, such as cleaning and repairing classrooms as well as painting old desks.

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KALAHI-CIDSS is the Philippine government’s flagship pover- people. He believes that his purpose it necessary for people around me to Mindanao–the poverty, constant pres- ty-alleviation project implemented by the Department of Social in life is to serve to others, helping understand the whole process before ence of armed conflict and people in them to help themselves. He recalled getting to the details. This facilitated need of basic services–Gudmalin be- Welfare and Development through the financial support of the his college days, describing himself the achievement of my unit – they came more convinced about the need World Bank. It stands for Kapit-Bisig Laban sa Kahirapan- as a “scrawny little kid – the smallest understood why things must be done to bridge the divide. Comprehensive and Integrated Delivery of Social Services. in my ROTC platoon” which did not accordingly. Only when we are in the stop him from excelling academically. same boat can we work together to- But before he could create reforms on Through hard work and persistence wards a common goal.” the outside, he knew change needed KALAHI-CIDSS runs in 184 municipalities. Its projects include, he aced his engineering subjects when to happen from within the agency among others, basic social services (water systems, school build- most of his classmates and platoon As more and more leadership op- itself. He observed how DSWD was 1 ings, health stations, day care centres, electrification and shel- members failed. portunities came his way, it became weighed down by old practices that re- clearer to him how much better peo- sulted in tensions between its national ter), basic access infrastructures (farm to market roads, small He narrated, “One day, members of ple responded to the tasks at hand and regional offices. The physical and bridges, access trails), community production, economic support my platoon approached me and asked when they understood the importance emotional demands of fieldwork com- facilities (pre-post harvest facilities, small scale irrigation, com- for my help. I began organizing coach- of each step taken towards the bigger pounded by the strained relationship munity transport, enterprise training) and environmental pro- ing sessions for my classmates in or- goals of the collective. To achieve between the national and regional der for them to bring up their grades. this, constant mentoring and engag- offices took its toll on the employees. tection and conservation (drainage, river/flood control, sea wall, I would demonstrate how to solve ing with his internal stakeholders was “The old practice was that of deficit slope protection and sanitation facilities. complex problems by simplifying the necessary. monitoring, which means that the na- concepts behind them, making them tional office would look for what was Camilo Gudmalin easier for other people to understand.” This need became even more impor- not done, instead of looking at what National Project Manager, INTRODUCTION self as a mentor and facilitator, rather tant when he became part of DSWD has been accomplished. Naturally Kalahi-CIDSS, than a director.” The call to serve and In return for these extra lectures, his in 2003. when you set out to look for mistakes, Conference Workshop respond to the needs of the disadvan- platoon members helped him out dur- people begin to feel uncomfortable Department of Social Welfare May 24, 2009 taged is the common thread that binds ing ROTC practice. Having spent 22 years at DAR, Gud- and defensive towards you,” Gudma- and Development the people in the agency who, in spite malin was surprised when Dr. Aris lin explained. Dir. Camilo Gudmalin stands quietly of the challenges, continue to work on “So you see everything turned out well Alip—a recipient of the Ramon Mag- in the middle of the conference hall, uplifting the majority who are poor for all concerned! They were pretty saysay Award for Public Service and By patiently engaging his staff he re- intently following the preparations be- and vulnerable. thankful that they didn’t have to repeat a former mentor of his—invited him alized that those in Manila needed to ing done by the DSWD staff as they at- the subjects again, and I had an easier to take his place as National Project communicate strategies effectively to tend to the final details of the upcom- Today is no different. Chief executives, time during ROTC.” He laughed. Manager of Kalahi-CIDSS program of their regional counterparts. In order ing workshop on Bridging Leadership department heads, and members of DSWD. He recalls his reaction then, “I for the region-based staff to improve for Local Government Units in Zam- the respective Municipal Councils Lessons from that simple time were was surprised. After all I am an engi- their outputs, they needed coaching boanga City. He is in a good mood. In (MCs) of the two of the poorest mu- not lost to Gudmalin. After gradua- neer, not a social worker.” on addressing specific issues they en- a few hours, participants from two of nicipalities in Zamboanga peninsula tion and as soon as he assumed a po- countered in the field. He realized that their three pilot municipalities will ar- will attend. The realities in their areas sition of responsibility—as project en- However, with his years of leadership communication and constant mentor- rive. His team has outdone itself and he are dire and the work is serious, but gineer in the Department of Agrarian experience, a solid record of accom- ing could help his staff break through is proud of them. He smiles and says, the mood in the conference hall is Reform in Zamboanga City where he plishment in project implementation the traditional paradigms they were “You have to understand from the very encouraging and hopeful, reflecting supervised and managed infrastruc- and the desire to teach and learn, it moving in. beginning that the DSWD is an agency Gudmalin’s personal outlook and the ture projects and worked with rebel was not surprising that this engineer that gives and keeps on giving.” potential he sees for his organization returnees, he knew he had to develop was able to transition smoothly into The coaching sessions paid off. He and its various stakeholders. the same kind of relationship with his development and social work. Hav- saw his staff move from monitoring Not one to call untoward attention to peers, subordinates and staff. “I find ing seen for himself the situation in to assistance, from tension to more himself, he understands when to trust This write-up was written BEGINNING THE the decisions of his staff and when to by Maria Meliza Tuba of the JOURNEY step in to offer advice and direction. AIM TeaM Energy Center for 1 Director Gudmalin was promoted to Municipal Agrarian Reform Officer on January 1988 where he led a 7-man team in the implementation of the agrar- He continues, “Much of the success ian reform program. He became Chief of Project Development and Implementation Division in February 1990. He assisted the Regional Director in planning and Bridging Leadership under the At a young age, Camilo Gudmalin dis- of the DSWD it owes to the passion implementing the Department’s programs on land acquisition and distribution as Director III/Assistant Regional Director for Operations. He became Head of Opera- supervision of Philip Dy. covered that he was a naturally good tions at the Office of the Secretariat at Quezon City in January 1996. From March 1998 to September 2003, as Program Manager, he supervised multi-million peso and drive of the people in it. I see my- at teaching, coaching and inspiring projects where he designed and implemented integrated development projects with sustainability mechanisms and saving-credit operations.

94 95 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

open communication. “It is a balance,” ship.” He explained, “I spent some of grams in the regions. Core groups the divide–which is particularly glar- more possibilities for the program and tant. When you engage the people Gudmalin noted, “Minsan ang pagtu- the best years of my life in DAR, and were then organized in every munici- ing when you visit the barangays1.” infused a new mentality in Gudmalin’s below without preparing the over-all turo, pag hindi kailangan (Sometimes in the process, I was lucky enough pality to work closely with local gov- team: “We cannot continue rowing just governance structure, you create fric- when it is not necessary, teaching), be- to have worked closely with Profes- ernment units and come up with more The absence of adequate roads, lack of by ourselves; we have to teach others tion. Barangays start to demand what comes an imposition. But when every- sor Garilao. He was the one who told ways of improving local governance to access to potable water, and children to row as well. We must assume a new is due them. And when the munici- one understands why we do the things me that I had to go back to the root address poverty. suffering from malnutrition–theserole now – that of steering the ship.” pality is ill-prepared to accommodate we do, only then can we begin to see of what we were doing, otherwise the are only some of the conditions that their requests, it is rendered powerless improved results.” staff might get burned out and I will ADDRESSING THE plagued the poorest barangays, which The people began to own the pro- to provide their constituents with real not be able to get what I need from until recently were voiceless and vir- grams that were being implemented. development. In 2007 another challenge confronted them–which was exactly what was NEEDS OF THE tually invisible to the outside world. Gudmalin shared a story about the Gudmalin. He noticed several key happening to us then!” POOREST OF THE POOR Save for the handful of DSWD social expansion of a school building funded “Then the culture of distrust begins projects were not coming up with the workers who regularly made the dif- by Kalahi-CIDSS. anew,” said Gudmalin, “when the results as expected. He had already Through focused group discussions The divide of poverty took a more ficult trek to engage the communities Sangguniang Bayan or the bureaucrats invested several trips to the areas and held during a workshop for Kalahi- personal turn for Gudmalin when sat in dialogue and social preparation for “One portion of the school was have different priorities or personal had spent considerable time talking to CIDSS Regional Project Managers, before the interview panel for a fel- Kalahi-CIDSS, no one had really both- built by a contractor almost at the biases, these can ruin a good program. and coaching the regional employees Gudmalin was able to confirm that lowship position in the AIM-Team ered to listen to what they had to say. same time as the annex building This situation happens when not eve- but to no avail. He went through his five years of meeting deadlines and Energy Bridging Leadership for Mus- which was built by the members ryone is on the same boat.” targets and noted that there was sim- targets left most of the Program Man- lim Communities Program. “It was The Kalahi-CIDSS’ initial approach of the community themselves. A ply no way he could scale up what he agers’ spirits frayed and exhausted. then that I realized how personal this involved engaging the most helpless year after the building’s comple- Getting everyone on the same boat presently had in order to come up with With those findings, he packaged a has become for me.” and the hopeless at the barangay level. tion, the contractor-built por- became his next challenge. something substantial by the dates he proposal for a Bridging Leadership Gudmalin and his core group sought to tion was poorly maintained and had set for himself. course for selected national and re- Staying true to his Kalahi-CIDSS “build demand first” by bringing devel- already looked run-down. The background, the issue Gudmalin MAKAMASANG TUGON gional KALAHI-CIDSS staff. The opment to the people in the grass roots portion that the people made sought to address was poverty. He Being the pro-active learner that he workshop brought the participants to and changing those who are at the first however was very well main- Government As Main Stakeholder In explains, “With a diverse population, is, Gudmalin sought out the answers their original disposition when they layer of poverty. In the beginning, they tained and the people made sure Community Driven Projects to his dilemma the best way he knew first began social work, back to when Mindanao is a cultural melting pot, thought that, “If we directly injected that repairs were undertaken where the most vulnerable groups how. “When I don’t understand some- the project was their life’s mission and help into and relied heavily on the mu- regularly. Amin ito (This is ours), The most common reaction Gudma- are the minorities – the indigenous thing, I always make a point to ask the “longing of their hearts and souls”. nicipalities, we might end up helping the people would often say.” lin gets when he shares his stories is: tribes and the Muslims. These sectors about it. I’ve been lucky to have super- The Project Managers concluded the those who do not necessarily need our “You did all of that?” He shakes his are small, voiceless and powerless and visors who ended up mentoring me in workshop with a renewed sense of help.” Also, by helping the barangays its After the communities were empowered head when people say that, but he un- become easy prey for armed bandits. one way or another,” he said. He ap- purpose. members would have a voice. Once the to voice their demands, the next ques- derstands their initial disbelief. Kala- If we are not careful, these poor mu- proached Professor Ernesto Garilao barangays have that voice, they should tion for the Kalahi-CIDSS team was: hi-CIDSS has been quelling whispers nicipalities will become the next hot who had been one of his mentors at They didn’t have to wait long for the be able to make the people in the mu- Who can make these demands possible? of disbelief for the past six years, and points of armed conflict–something the Department of Agrarian Reform, effects of the workshop to reach other nicipality–their elected officials and the project has been steadfast in its that could seriously undermine the for advice. At that time, Professor staff members. This “domino effect” members of its bureaucracy–realize For Gudmalin it became very clear campaign even in the most daunting drive towards development.” Garilao had been achieving positive was enabled by the Project Manag- that they can make demands and make that the necessary element in build- of circumstances. results from the AIM Team Energy’s ers themselves who echoed Bridg- themselves heard. ing support for the barangays was in Being relatively new to the develop- Bridging Leadership Program and ing Leadership to their regional staff, the ability of the LGU to adopt the “Of course, at first glance it ment field he had very little social word about this innovative leadership including some staff from the local By talking to and engaging the ba- community-driven processes initiated would all seem so flawless and so capital to work with, a challenge that approach had spread quickly. Gud- government units they worked with. rangays directly, communities devel- by Kalahi-CIDSS that was already in- easy. But getting to the results we added a new dimension to his leader- malin had heard good things about Gudmalin is proud to have been part oped self-esteem and became more tegrated by local communities into the have now was a long and pains- ship journey. A self-described intro- it from Mr. Vlad Hernandez (Cohort of the team that introduced Bridging confident, and barangay leaders be- local development planning activities taking process. It most definitely vert, he had to get out of his comfort 2) but it was Professor Garilao who Leadership to different regions. He came more responsive to the needs of of the municipalities. was not easy,” he recalled. Once zone to build relationships with the deepened his understanding of the served as resource person in CARA- their constituents. Mentoring, now on To him, this was precisely why engag- the barangays were on board, the potential of Bridging Leadership for GA and in Regions 9 and 12, but he people who could help him make a bigger and wider scale, opened up ing local government units is impor- himself and his programs. did not stop there. In his capacity as change happen. “To address the issues National Project Manager, he organ- of the vulnerable, there is a need to “I got involved with Bridging Leader- ized his technical staff into a core strengthen the leaders. Leaders must ship even before I took on the fellow- group that facilitated training pro- be able to address the seriousness of 1 Village.

96 97 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

working tirelessly for development to next step was to engage the lo- partment of Interior and Local Gov- in showing local mayors how to better to recognize how effective the Kalahi- flourish in the municipality. Mayor Climaco, some members of the cal chief executives–a task easier ernment (DILG) that which affirmed engage their constituents in develop- CIDSS programs were and started to Sangguniang Bayan, and his depart- said than done. the need for closer collaboration be- ing programs and services that direct- participate actively in the processes. Tungawan remains one of the poorest ment heads participated in a 5-day BL tween the two departments. This facili- ly address their needs. municipalities of Zamboanga Sibu- training organized by DSWD that in- In the course of empowering the ba- tates and harmonizes established local THE CASE OF gay–but the young mayor is undaunt- visioned to improve local governance He cited a story shared to him by May- and to make the LGU more responsive rangays, Gudmalin noted that they had government planning and budgeting TUNGAWAN, ed. He says he is inspired by Gudmalin, apparently neglected to develop the lo- processes, mechanisms and timelines, or Randy Climaco from Tungawan, in who first struck him as “someone pro- to the needs of its constituents. cal government units which are man- and the highly participatory CDD pro- the province of Zamboanga Sibugay: ZAMBOANGA SIBUGAY fessional, straight-forward, focused, dated to ensure that the barangay pro- cesses developed by the Kalahi- CIDSS nd was someone who listened well.” Gudmalin concluded, jects are provided with adequate funds project. From there, a Joint DSWD- “Ngayon ko lang nalaman, When Director Gudmalin chose three Like Gudmalin he believes that slowly, and are successfully carried out. And DILG Sub-committee was formed to through the Barangay Assem- of the poorest municipalities in Zam- change is coming to the municipality. “How does the Project motivate now, the barangays were voicing their further define this harmonization and blies, na ang problema ng mu- boanga and Lanao del Norte as his With the entry of Kalahi-CIDSS, peo- poor people to participate in the demands but were met with local gov- guide the implementation of a pilot nisipyo ko ay tubig (It is only Bridging Leadership project areas, he ple began to claim ownership over the development processes despite ernment units that were ill-prepared to harmonization process in selected now, through the Barangay As- knew he had his work cut out for him. projects implemented in their locales. claims of being tedious, long and accommodate them. “Supports from Kalahi-CIDSS areas. Thus, the Maka- semblies, that I realized that the Turning their situations around was cumbersome? What drives partic- the LGUs are an integral part of the de- masang Tugon Pilot Initiative of the problem in my municipality is by no means easy feat. If he was to suc- The commitment of the people to the ipation, based on our experience, velopment puzzle. The local chief ex- Kalahi-CIDSS Project was born. water),” particularly access to ceed, he would need the unwavering projects is unmistakable–“On their people long to be informed espe- ecutives and other LGU agencies need clean and potable water. He was support and commitment of his staff, own initiative, people would repair cially on issues that affect or ben- to be engaged if the projects are to suc- One of the primary goals of Makama- surprised at the result because the local chief executives of the mu- farm-to-market roads even without efit them; they need to be heard. ceed,” said Gudmalin. sang Tugon was to address the capaci- this concern was not reflected nicipalities, and the bureaucratic sup- pay,” Climaco says. This has signifi- This simple act of consulting and ties of the local government units and in their Municipal Development port. Leaving one’s comfort zone and cantly eased the burden on the mu- the willingness of government to In Kalahi-CIDSS practice and in the to embed their existing systems with Plan. The MDP, which was pre- making the effort to collaborate and nicipal government, which is now able listen motivate people to partici- interest of project continuity, respon- the principles of governance–partici- pared by the municipality’s engi- engage with his different stakeholders to focus on other matters such as im- pate in the affairs of the village. sibilities in sustaining the projects are pation, transparency, and account- neers, was peppered with other are among the most important lessons proving the peace and order situation The opportunity to participate in given to the communities and LGUs. ability. Makamasang Tugon aims to projects like road maintenance, drawn by Gudmalin from the Bridg- in the municipality. Because of regular decision-making enhances their Community driven development consolidate the gains acquired from but never touched on the issue ing Leadership program. Gudmalin consultations through the Barangay social capital and standing in the (CDD) technology, such as participa- engagement with Kalahi-CIDSS in of water. When he was finally was both strategic and lucky in his Assembly, problems of the people on community. It is good for their tory local development planning and poverty alleviation, enhancement of able to speak to his 23 barangay choice of local partners. the ground surfaced and enabled the self-esteem and self-respect. And resource allocation and social capital local government, and community captains, 15 of them reported the municipal government to allocate its finally the opportunity to put into formation, needed to be embedded empowerment by harmonizing Com- need for potable water. Closer Randy Climaco, the youngest of the meager resources more strategically. action their cherished sub-project into the local governments’ planning munity Driven Development within interaction with the barangays three mayors he is working with, first reinforced the feeling that despite and development cycle. the Local Planning Process. also enabled the mayor and other met Gudmalin during Kalahi-CIDSS’ “But what I am most impressed and being poor, they have the ability Sangguniang Bayan members to first cycle of implementation. A first- thankful to Kalahi-CIDSS for is that cor- to make a difference in the com- In practice, the local planning and “After all, we are not aiming to trans- travel to the farthest barangays–a term mayor, Climaco was eager to get ruption has been greatly diminished,” munity. budgeting processes prescribed in form, but to reform the present sys- scenario that used to be impossi- his municipality on track. The mere Climaco added. “Because project selec- the Local Government Code are not tem,” Gudmalin added. ble because of the highly volatile mention of Tungawan once conjured tion and bidding have been gradually Kalahi-CIDSS opened up spaces for always followed faithfully by LGUs, peace and order situation. But unpleasant images to people. Climaco returned to the people there is less op- community leaders and volunteers which results in local plans and budg- In the beginning, the town mayors were because the mayor directly co- describes the Tungawan of old as a “no portunity for others to take advantage.” to engage local government units ets that are sub-optimal, where pri- sceptical. As local chief executives, they ordinated with the captain of the man’s land” where many constituents through their active involvement in orities are often not responsive to the usually focused on the projects and barangay, the latter was able to turned to carrying arms for the MNLF Taking a cue from Gudmalin, whom village and municipal development needs of poor communities. This is a had little concern for the processes that assure his safety and for the first because of poverty. While conditions he considers his mentor, he realizes councils. I believe the test of an em- recipe for enduring poverty and dis- went on behind these projects. Kalahi- time ever, a local chief executive have improved since, the stigma is still the importance of getting everyone powered community lies on its abil- empowered citizens who feel power- CIDSS had the burden of showing that was able to reach the far flung there and it is an uphill battle for those in his team to be on the same page. ity to engage the government.” less to change their present circum- its system was a sound one, and that barangay.” stances. most of all, it was a system that worked and delivered results. Once the mayors saw the results for To respond to these challenges, the themselves, the Kalahi-CIDSS projects Gudmalin and his team conducted were seen as perfect opportunities for a series of consultations with the De- Barangay Assemblies were invaluable municipal development. Mayors began

98 99 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

“When the Filipino Muslims start to trust the government and Although He admitted that his prepa- lan’s people have much to be unhappy Finally, the ASG is also inextricably the Philippine Constitution more than the ASG, there is hope for ration for the assignment was inad- about. Lack of education and illiteracy tied to life and politics in the commu- equate, he took the transfer in stride. are problems compounded with inad- nities of Basilan. Most members had peace and development in southern Philippines.” “Since there is a job to be done and as equate classrooms and materials, fre- come from these same barangays1 and a good Marine, we obey orders even at quent disruptions of classes because of municipalities, and so were always the most extreme circumstances.” armed conflicts, and teachers who are somebody’s child, sibling, cousin, in- Joining the military was a childhood military solution, a simple case of too frightened to go to remote areas. law, husband, father, or friend. This dream of Guerrero. As a kid, he was managing a violent environment. Guerrero’s unit was in-charged with Health services available to the people alone made it unlikely that people amazed with the pomp and pageantry But the AFP has since realized restoring peace in the province and in the province are limited; most hos- would give them up. Moreover, but of the armed forces parades, but more that longstanding conflicts are delivering services to the people that pitals lack even the most basic facilities. many had also developed ties with lo- than these, the heroism it champi- multi-dimensional, so they need promote socio-economic growth. cal leaders that gave them an added oned. He would spend hours in front a multi-faceted approach as well. Clearly, this meant neutralizing the Ownership of business establishments is layer of protection. of the television watching war films Insurgency thrives in a society armed threat in the area so that the also concentrated to a small number of and military drills. In 1977, he was where basic social and economic police could take charge of the safety rich Muslim and Chinese-mestizo fami- In 2008, the Marines traced back accepted in the Philippine Military needs are not met. Poverty and of the residents of the province once lies. As a result, wealth distribution tilts weapons they had found after skir- Academy (PMA). While in the acad- the discontent it causes can lead again. Aside from combat, the Ma- in favor of a few while the majority of mishes with the ASG to one of the emy, he learned discipline as a source to its politicization and, in some rines also had the additional responsi- the populace lives below poverty line. mayors in the province. This was after of personal development. cases, to violent actions against bility of supporting local development their efforts to disarm Basilan’s local political objects and actors.” efforts, primarily through infrastruc- The huge disparity in the province’s officials in order to contain the power Guerrero graduated from the PMA ture and education projects. living standards opens up a space for struggle that the death of Wahab Ak- in 1981. After completing the Na- The recognition of the military of the Brigadier General anti-government movements to draw bar, a Basilan strongman, triggered.2 val Officer’s Qualification Course, he many dimensions that shape the con- This was not the first time Guerrero discontented individuals to their While some local officials denied any volunteered for the Philippine Ma- flict in Mindanao has led it to acknowl- Rustico Guerrero would have to confront the ASG, so cause. The ASG has tried to take ad- alliances with the ASG, it was likely rine Corps. He completed a number edge the importance of working with Commander he knew the mission would not be vantage of this through raising support that they had lent the rebels support of assignments in Central and West- other actors for reasons other than Task Force Comet easy. The rebel group was deeply en- by touting Islamic fundamentalism as to derail military campaigns. ern Mindanao, Central Luzon, and just gathering intelligences. “They’ve trenched in Basilan, with many vari- a way out of the people’s suffering. The Armed Forces the Armed Forces of the Philippines realized that the military alone can’t ables working in their favor. group still acquires most of its funds On the other side, absentee mayors (AFP) General Headquarters be- solve the peace and order issue–every- of the Philippines using illegal means. It relies on the also pose problems for the military. fore becoming commander of the 1st one with a stake in the problem needs Access to the interior of Basilan re- support, voluntary or coerced, of the When mayors are not present to do Marine Brigade in Basilan in August to get involved. We are not the solu- mains limited. There are few roads, communities in their area of opera- their jobs, services suffer and commu- 2007. He also trained and specialized tion. It is everybody’s concern, all the most of which turn into bogs during tions by extorting monthly taxes from nities become vulnerable to the influ- in a number of courses in the country stakeholders.” the rainy season, and thick forest cov- residents, teachers, businessmen, and ence of the ASG. and abroad before heading the Marine er makes aerial reconnaissance impos- illegal loggers, aside from engaging in Corps Training Center in Fort Boni- Called to Duty sible. Whatever advantages govern- kidnap-for-ransom activities. Local For Guerrero, all these factors empha- facio and Cavite, the premier training ment troops have, such as their more residents comprise most of the ASG’s size the complexity of the situation in institution of the Marine Corps. On July 10, 2007, 14 Marines were superior number and equipment, did hostages nowadays (as opposed to for- Basilan and, thus, the inadequacy of a killed after a day-long encounter, 10 of not give them wide lead over the rebel. eign nationals before). The fear preva- combat-only approach to the problem. As he rose in rank, the number of lo- them beheaded by the ASG and some lent among the majority of the popu- Although the physical security of the cal government units, communities, breakaway members of the MILF. Basilan’s socio-economic conditions lace caused them to side with the ASG province remained the primary mis- and other stakeholders he needed to Another major clash occurred on Au- encourage the existence of groups over the government. It is thus also sion of his unit, there needed to be just engage has also grown proportionate- gust 18 as the AFP stepped up efforts such as the ASG. Insurgency thrives important to consider these individu- as much thought and effort invested in ly, as well the scope of the projects he The write-up was written against the lawless groups to eliminate in communities where poverty and als and communities as critical factors the civic aspect of their operations. worked with them. He shared, by Cecille Joyce Lao under kidnapping and terror activities in the discontent are widespread, and Basi- in the fight to eliminate the ASG. the supervision of Philip area. The operation resulted in numer- Dy of the Asian Institute “When I first became a Lieuten- ous casualties from both sides. Guer- of Management Team ant, the military was already deal- rero was appointed Brigade Com- 1 Villages. Energy Center for Bridging ing with the insurgency problem. mander of the 1st Marine Battalion Leadership. The response used to be a purely in Basilan, 4 days after the operation, 2 Wahab Akbar was a Filipino politician who served three terms as governor of Basilan. Later elected as representative of the lone district of Basilan in the House of Representatives, Akbar was one of 5 people killed in a bomb attack at the Batasang Pambansa on November 13, 2007. Police suspected that the attack was directed at him. The blast also killed the driver of another legislator and 3 others, including one of Akbar’s own aides.

100 101 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

Failure to address the socio-economic non-combat activities that the AFP Second, collaboration provided them and other officials to function by -in gained ground within the AFP. In the Philippine and US military medical problems means that whatever peace engages in to help achieve its over- with a way to sustain their gains in the volving them in all crisis and peace Marine Corps in particular, civil-mil- personnel, provincial and municipal the AFP wins through combat will not all objectives in an area. Interaction province. From the start, Guerrero and order decision-making and im- itary operations now comprise 80% of health personnel, and volunteers from last long. The ASG (or other groups with different stakeholders is one of understood clearly that the AFP only plementation efforts. In areas lacking their work and this new perspective civic organizations for medical and like it) would simply continue recruit- the primary components of CMOs. gives assistance in whatever way it can development efforts, Marines came in has been built into their curriculum. dental missions. They then provided ing disgruntled citizens and regain Guerrero’s unit conducted almost all to address gaps in basic services in af- to trigger them using various CMO As a result, officers are now being sent residents with free consultations, strength once the military pulled out of their CMOs in tandem with gov- fected communities. It was not its re- programs. to their assignments with a greater check-ups, medicine, and personal of Basilan. Without stabilizing the ernment and non-government groups sponsibility to take over the functions appreciation for the value of these ac- hygiene items that had been donated peace and order situation in the prov- in Basilan. This emphasis on collabo- of the local government units or vari- Depending on the needs of a commu- tivities and a clearer understanding of by various groups. ince, development efforts will not ration is part of their strategy and goal ous line agencies nity, a unit’s civil-military operations how best to conduct them. have the space or the time they need for a number of reasons: can include anything from road repairs One of the highlights of this program to flourish, thus restarting the cycle of Most of the solutions they offered were to medical missions to mangrove refor- Because of the situation they found in was a special project for patients with poverty and violence. More than just First, the brigade did not have the re- short-term ones. Partnership with estation. For the most part, however, Basilan’, education became one of the bri- cleft lip in the province. With assistance building roads and escorting doctors, sources to conduct all of those projects other organizations, including groups the 1st Marine Brigade kept its CMO gade’s priority CMO programs. They had from the Jerome Foundation in Zam- this meant that Guerrero and his men on its own. Because its primary mission with the mandate to provide for such efforts focused on just a number of found that a significant number of ASG boanga City and the US Armed Forces, would have to engage with the dif- remains securing the safety of the com- services, allowed them to place their programs. These activities were organ- members are very young and that the Guerrero’s unit facilitated the free sur- ferent stakeholders in the province. munities, it had little funds available activities within longer-range strate- ized following Guerrero’s campaign ASG routinely targets the youth for re- gery on more than 70 individuals from These included everyone from the for these programs. What it did have, gies to address Basilan issues that have plan for the province but were mostly cruitment, particularly the poor and the some of Basilan’s remotest areas. He civil society organizations (CSOs) and however, was manpower and the ability to do with education, health, and envi- initiated by the units under his com- illiterate. The Department of Education narrated, “All of our units were directed the religious to government line agen- to stabilize the peace and order situa- ronment. It also made it easier to turn mand. He explained, “I was responsi- (DepEd) had had a hard time addressing to look for those suffering from cleft cies and elected officials. He did not tion in most barangays. Collaborating over projects to communities and lo- ble for the provincial level while my of- the problem because of the peace and or- lip, particularly the children, and then believe that the consultations and dia- with local government units, line agen- cal government units and ensure their ficers engaged with the mayors and the der situation in the area as well as their to bring them to Zamboanga City with logues should remain at the top-level, cies, CSOs, and other groups not only continuation given their shared sense barangays. We each had our own roles own issues with personnel and funding, their parent or guardian where they among the Commanders, the Gover- gave the brigade additional feedback on of ownership over the intervention. and tasks.” Guerrero’s commanders so Guerrero’s unit found ways to help. would be examined and then subjected nor, the mayors, the imams, and the the communities’ needs, it allowed it to understood the long-term strategy of They sourced funds and materials from to surgery for one day in three partici- heads of the CSOs. To regain the com- maximize its resources and expand the More fundamentally, however, col- the AFP for Basilan, but they still have local officials, various funders, and even pating hospitals. After their surgeries, munity’s trust, to convince them that impact of its work. The brigade’s pro- laboration gave them way for commu- to get feedback from the community. the United States military and used these they would be escorted back to their the military was sincere in its desire jects on infrastructure, environment, nities and groups to regain their con- This made delegation useful not only to put up new classrooms, renovate exist- homes in Basilan. Most of the patients to help and make the changes made and health all benefited from this col- fidence in themselves and transform in distributing work, but also in ensur- ing school buildings, build more desks, could not even have afforded the trans- sustainable, it would have to perme- laboration, as in the construction of two their relationships with each other. ing that CMOs remained responsive to chairs, and blackboards, and distribute port fare from their residence to Isab- ate down to the frontlines, at the level Area Coordinating Center buildings in One of the effects of the continuing people’s needs on the ground. textbooks and reference materials to the ela City, so we used military vehicles to of the barangay captains, concerned Lamitan funded by the US military and underdevelopment of the province children. In areas like Barangay Amaloy transport them to and from their homes citizens, and Guerrero’s lowest-ranked build by the Philippine and US Navy was the detachment that the people In addition, they also had the advan- where there were no schools or teachers, or provided them with the fare.” Marines. This decentralized approach engineers. Supplies for similar activities felt from the government. Life was tage of having worked with local com- they went a step further. They partnered is consistent with the hierarchal set-up typically came from local officials, the difficult, and when even their lead- munities before. According to Guer- with DepEd to establish Learning Cent- The events were both inspiring and of the military, where delegation filters US military, and various funding agen- ers seemed incapable of helping them rero, the military’s perspective on ers where soldiers served as teachers sobering for the soldiers and the through to the lowest unit leader. cies, while the Marines themselves ren- improve their lives, they became vul- civil-military operations is something so children could start on their lessons medical and dental professionals that dered the labor. nerable to the pull of groups like the that has evolved over the years. When again. had participated in them. On the one Civil-Military Operations ASG. To address this, the military and he first graduated from PMA, few hand, they were happy to have been Another example was the post-conflict other government units needed to go commanders saw reason to make use Guerrero’s unit also conducted many able to help the people. However, as and takeholder S operations of the unit in Basilan’s towns beyond combat operations and devel- of such activities. Field assignments medical (MEDCAP) and dental thousands of patients flocked to their Engagement that were hit worst by the war. In situ- opment initiatives; they needed to re- were usually just about combat, train- (DENCAP) civic action programs in events, it also became difficult to ig- ations where displacement of the resi- cover the goodwill of the people. ing, or intelligence. Today, however, response to the poor health conditions nore the lack of good health services Guerrero and his unit began their dents was unavoidable, the Provincial a more holistic approach to peace has in the area. They asked help from the in the province, especially for the civil-military operations (CMOs) in Social Welfare Office, Provincial Health As a part of their strategy, the Marines Basilan in September 2007, just as Office, NGOs, and the AFP worked took on this challenge and became soon as the situation on the ground together afterwards to distribute relief the means for other leaders to come 3 Rido is a form of conflict typically found in certain areas of Muslim Mindanao. It refers to a type of feud between families, clans, and even communities was stable enough to allow them. goods and provide other assistance to together. Local commanders would that is characterized by sporadic outbursts of retaliatory violence between the parties involved. It can occur in areas where the government or a central authority is Civil-military operations refer to the weak or where there is a perceived lack of justice and security. It is considered a major problem in Mindanao because of the numerous casualties, the destruction of affected communities. encourage mayors, barangay captains, property, the crippling of the local economy, and the displacement of families.

102 103 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

poor. Guerrero shared, “Some of the They also planted trees and reforested ings with Pagtabangan Kawman, a nificant progress when Basilan’s mayors that were further complemented by lec- ing the soldiers into these communi- people had not even seen or consulted mangrove areas to help address the multi-stakeholder consortium geared themselves chose to convene their Mu- tures on understanding the Muslim cul- ties for CMOs and giving them the a doctor before.” livelihood needs of the communities. towards peace building initiated by nicipal Peace and Order Councils with- ture for new Marines. All of these served chance to engage the people in a con- Fish, lumber, and rubber are some of the CSOs in Basilan, and with the lo- out prompting from the military. Some to emphasize the importance of reaching structive manner also allowed them to Another major aspect of the CMO Basilan’s most important resources, cal monitoring teams and Peace and even joined Guerrero’s unit in pursuing out to different stakeholders and sec- see the people’s positive reactions to programs of the Marines was the and the Marines’ conservation efforts Order Councils of the different LGUs kidnappers and other lawless elements, tors in a context like Basilan’s, where the their work. At the most basic level, it resolution for rido3 in the province. were meant to protect these sources of in the municipal, city, and provincial even at the risk of direct threats from causes of the conflict were complex. As made them feel appreciated for their Disputes between and among families income of the people. levels. When he could not make it to these groups. In addition, community one soldier put it, “We have to accept we work and be more in tune with the and tribes in Basilan could make the these gatherings himself, he made sure volunteer groups, community watch- are not Superman in action, rather, we people they were risking their lives for. situation in communities deteriorate When Guerrero and his men first to send his deputy to represent him so men, and other local officials offered should be men who know how to work very quickly, so when the police could began approaching the different he could be kept abreast of the differ- their time and support in guarding their with others.” Bridging Leadership not settle the problem immediately, it stakeholder groups in Basilan, they ent plans and concerns of the group. respective communities to complement fell to the military to coordinate with drew some very mixed reactions. He As he put it, the AFP’s security efforts. Another significant difference in the Guerrero joined the Bridging Leader- local leaders to help settle the issue. shared, “Some sectors were coopera- way Guerrero’s unit conducted its ship (BL) Fellows Program on October tive and receptive. They still had hope “My dialogue with the religious, Guerrero and his commanders wel- CMOs is the expansion of their part- 2008, a little over a year after his assign- This was how Guerrero found himself that the military would perform a big the CSOs, the business sector, comed these as a sign of the people’s ners and the deepening of their en- ment to Basilan. He quickly recognized mediating between two clans in Tipo- role in bringing about peace and de- barangays, and concerned citi- changing perception of the military. gagements. They made a conscious the value of BL to his work as a way to Tipo and Tuburan in early 2008. To velopment in Basilan. Other sectors zens are the most important and Nevertheless, it was not just the locals’ effort to include NGOs down to the ba- streamline his interactions with the dif- prevent the outbreak of violence in their were quite aloof and even unreceptive precious moments that I consid- perception of the military that had be- rangay level in their consultations, “… ferent sectors in the province. He said, respective communities, Guerrero held to the presence of the Marines.” er vital in bridging the gaps and gun to shift, so had the soldiers’s per- so we had more activities and projects “It is a systematic way of working with dialogues with both sides, coordinated building alliances to help bring ception of the locals. because our network widened. Co- stakeholders that allows me to optimize with the LGU, and asked for assistance There were LGUs, for example, that peace to Basilan. These kinds ownership was emphasized in order to my engagements.” In particular, he ap- from religious leaders and the elders in were not very welcoming to the military of engagements kept us updated At the start of the unit’s civil-military sustain our gains and avoid ‘white el- preciated BL’s VMOKRAPI exercise as a the area. Their combined efforts led to when they first were approached. They and aware of the people’s con- operations, a number of soldiers were ephants’, or projects that are not based tool to address key program areas with the setting up of an Intervention Com- were afraid of being caught in cross-fire cerns and sentiments. It also al- hesitant about the activities. They did on the needs of the communities.” greater focus and direction and its em- mittee that helped manage the conflict between the AFP and the MILF and the lowed us to correct and improve not expect to be building schools or re- phasis on building trust and relation- and offered alternative solutions to ASG. Many more were afraid because our units and individual Marines pairing roads when they enlisted or as- As the soldiers witnessed how the ships as a foundation for shared action.4 families to prevent further conflict. The of the stories they had heard about the based on the comments and signed, particularly since the 1st Marine communities began to open up to settlement of feuds requires a certain military from other people. feedback of other stakeholders.” Brigade is a fighting unit instead of an the military with this approach and When he brought together various amount of patience and skill. With con- engineering one. Guerrero took the time viewed them with respect rather than stakeholders in 2009 for his Core Group flict resolution becoming part of their The mayors and city counselors were They built the community’s trust to explain to his soldiers how the mili- fear, they also learned to appreciate Building Workshop, he passed on the peace initiatives, they took the time to not the only ones who thought of the through constant engagement. It also tary could not win peace alone and how the value of a holistic approach that same framework to them. Guerrero’s learn from each settled case. One of AFP as unprofessional, immoral, and helped that Guerrero insisted the important it was for them to understand involved different stakeholders. Many Core Group included various members the battalions under his command even prone to abuse; the Provincial Board Marines remain professional in their the context they worked in and to work of the soldiers understood the com- of the Provincial Government and the developed a manual for Marine leaders members, a former mayor’s wife, sev- dealings with people. “When our together with the communities. He also munities they lived in, coming from religious sector in the province. in-charged with settling rido in their re- eral barangay captains, numerous soldiers commit mistakes, we don’t initiated the addition of new activities poor backgrounds themselves. In spective areas of operation. CSOs, and members of Basilan’s reli- tolerate them. We impose immediate into his unit’s regular training program fact, many had come from Mindanao, One of the most important accom- gious organizations shared this view. punishment on erring Marines and for both old and newly deployed Marines so they were no stranger to the issues plishments of the workshop was in- Under Guerrero’s leadership, the Ma- reward those who do well. I am very as well as CAFGU active auxiliaries, ci- in Basilan. Guerrero shared, “I could creasing the levels of trust and open- rines also carried out infrastructure Nevertheless, whether they viewed the proud to say that my unit had very few vilian volunteers, and disaster response understand the fact that the people ness between the core group members and environmental rehabilitation ac- military with suspicion or not, Guer- infractions against civilians.” organizations, like in Isabela and Lami- viewing them with suspicion and an- and the military. Previously, “they may tivities in Basilan. Aside from work- rero and his men persisted in engag- tan. These included sessions on Bridging ger when they were risking their lives have been my acquaintances because of ing on school buildings, they built and ing them. They initiated CMOs such In time, as local officials and CSOs -be Leadership for Small Unit Leaders and to protect them made them feel frus- several official meetings before, but the repaired mosques and madrasas that as school repairs and medical mis- came more familiar with Guerrero and on conflict resolution and management trated and angry themselves.” Bring- had been damaged due to war and sions and participated in dialogues his men and witnessed their sincerity, old age, sheds and other structures for and multi-sector meetings. They also their confidence in the military likewise public use, and installed water tanks provided security assistance to groups increased and it became easier to or- 4 Rido is a form of conflict typically found in certain areas of Muslim Mindanao. It refers to a type of feud between families, clans, and even communities and systems in various barangays to requesting them. Furthermore, Guer- ganize succeeding activities. Moreover, that is characterized by sporadic outbursts of retaliatory violence between the parties involved. It can occur in areas where the government or a central authority is weak or where there is a perceived lack of justice and security. It is considered a major problem in Mindanao because of the numerous casualties, the destruction of help make life in these areas easier. rero made it a point to attend meet- Guerrero knew that they had made sig- property, the crippling of the local economy, and the displacement of families.

104 105 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

BL workshop for the core group mem- government and overly critical, and resolve more issues. While Guerrero’s On February 23, 1973 war broke out in the Christian municipal- bers really did change their attitude so he was very careful in his dealings personal commitment to change and ity of Lebak, Sultan Kudarat (then under the Empire Province towards the military, us in particular.” with them. Constant exposure to progress in the province impressed all 1 The workshop helped them see that these groups, however, and BL’s em- of them, the pursuit of peace is a slow of Cotabato ) that changed the life of the young Pombaen Kader the AFP’s CMOs were worthwhile and phasis on collaboration instead of dif- and continuing process, and time is an as she was driven to go underground along with her family. “At not mere propaganda. In turn, Guer- ference, soon allowed his attitude to important element. the time, my father was the only Muslim councilor. He was a rero showed his interest in listening to shift. He shared, and working with the government and One variable that worked in their fa- well-respected man – a linguist who could converse with his con- the religious sector. BL also became “They displayed genuine interest vor is the way that the AFP has begun stituents in their own language. Prior to the war, we were living useful for the group as a platform for and effort in addressing the prob- to institutionalize a holistic approach harmoniously and in good relations with our neighbors.” collaboration. They used the frame- lems of the conflict areas and the to peace that emphasizes collaboration work’s technique of analyzing context, need for peace and development and information more than combat Within the year, Kader would find herself and her family in a life caught in a identifying common vision, and then in the province. More or less, we engagements. Referring to the AFP’s war between the government and the Moro National Liberation Front2 (MNLF) breaking this down into specific goals, have the same aspirations for the new triad concept, he explained, that continues to deprive Kader and those who live in many parts of Mindanao strategies, and activities to help set up province in terms of the desired the dividends of peace. mechanisms for planning, coordina- security environment and socio- “Following Major Geneneral Sab- tion, and dialogue between the differ- economic development.” ban’s ratio of 80% CMOs and 20% ent parties to prepare for disasters and combat, all CMO and combat op- Drive to Excel in War and ate. She recalled, “Before the war, my un- help improve the peace and order situ- The Challenge of Peace erations shall be intelligence driv- cles were all professionals: farmer, doctor, in Fragile Peace ation in Basilan. en, employing small unit special Hadja Pombaen lawyer, teacher (but) because of the war, Guerrero’s efforts to contribute to peace operations to hunt down armed everyone in the family became rebels. My Much like her father, Pombaen Karon- The core group mostly moved at their and development in Basilan were not enemy groups followed by larger family joined the struggle and my siblings Karon-Kader Kader had always been in good rela- own pace within their own areas of re- devoid of challenges. The environment Marine Combined Arms Forma- and I stopped (going to) school.” Assistant Secretary tion with rest of the community. Dur- sponsibility to contribute to the thrust he and his men worked in was a com- tions when the combat engage- ing her elementary years, although she of the group. Vice Governor Sakkala- plex one, and with his main function as ment escalates. This also reduces of the Department of Social That war a defining moment in Pom- was the only Muslim student in the first hul, for example, addressed the crises a Brigade Commander in Basilan–the displacements and collateral baen Kader’s life. She served as MN- Work and Development section, she consistently garnered aca- that befell the province through the neutralization of the threat that the damage to non-combatants.” LF’s underground first aid provider demic honors and was elected to lead Crisis Management Committee and ASG and other lawless elements pre- under the training of her aunt. It was her classes in various organizations the Provincial Peace and Order Coun- sented to the province–taking up much That was where Guerrero got his over- a period of immense character and such as Women’s Scouting Regimental cil. Father Libot continued advocating of his attention, his ability to pursue all strategy for Basilan. He is optimis- leadership building in the most diffi- Command. Because of her diligence the involvement of other stakeholders collaborations with other groups were tic that the Brigade Commander who cult of conditions. While going about and competence, she was highly re- in peace initiatives while influencing at times severely limited. He shared took over his position would pick up her duty of aiding the injured, a pow- garded by her peers and teachers. Basilan’s youth through his College. “BLFP made my approach more sys- where he left off and perhaps even erful bomb exploded few meters away tematic, but I have to admit that it was forge ahead with greater vigor. from her. “A bomb was dropped and When war broke out in February of 1973, Aside from his Core Group, Guer- difficult at the start for me to embark my ears began to bleed, leading to my her family was forced to leave the town rero also maintained a close working on a new track while attending to my If it is to last, peace is something that hearing disability (and) because we proper, so Kader was unable to gradu- relationship with the CSOs in Basilan. military obligation as a Commander.” all stakeholders must want and be The partnership was a result of his willing to work for. While Guerrero regular participation in Pagtabangan In fact, time is a challenge that he faced was no longer in a position to imple- Kawman’s coordination meetings, until the very end of his engagement ment key programs and pursue the the joint relief operations, and MED- gains he helped make in Basilan, his 1 The original Cotabato Province known as the “Empire Province of Cotabato” used to be the larg- in Basilan. On September 2009, Guer- est in the country in terms of land area until November 22, 1973 when Presidential Decree 341 was issued CAPs. At the start, Guerrero kept rero was reassigned to Sulu to head partners certainly were, as were the creating the new provinces of Sultan Kudarat and Maguindanao. Earlier, South Cotabato separated. What himself distant from these groups. He Joint Task Force Comet, an anti-terror Marine commanders that had served was then North Cotabato was renamed Cotabato under Batas Pambansa 660. was professional. Nevertheless, inas- under him. If they truly found value This write-up was written by unit in the province. He admitted the Maria Ayn Jella Villanueva under 2 The Moro National Liberation Front (MNLF) is one of the two liberation movements for the much as the CSOs had preconceived promotion came at a time when his in Guerrero’s work and wanted it to the supervision of Philip Dy of Bangsamoro people of Mindanao. Headed by Nur Misuari, MNLF emerged during the height of Martial La notions about the military, he also continue, then they were not without in the 1970s. The MNLF proclaimed itself a Filipino Muslim liberation movement and proceeded to start the unit’s engagement with other stake- the AIM Team Energy Center for Islamic insurgency in the Philippines in the hope of achieving independence or at the very least, regional carried his own biases against them. holders in Basilan was finally ripe for means to follow through on the work Bridging Leadership. autonomy for the Southern Philippines. In particular, he viewed them as anti- bigger and strategic collaborations to that they had started together.

106 107 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

were underground and had no access to Pombaen Kader was quick to return they hurt us, the more that my people Units, but in fact, they are staff of in positions of power and to the people ency, accountability and participa- medicines or medical care for my inju- to her diligent and studious ways. fight, she” said. DSWD-ARMM. Because of this, there in the communities. She brings commu- tion. Her work at DSWD and CDA r y,” she shared. It was also during this She focused on her education and was a lack or absence of funds for per- nity concerns to decision-makers and were consistent with her struggles as time that she lost one of the most im- found ways to send her brothers and Several years later, the fighting final- sonnel and the mandated services of makes sure they act on them.” a member of MNLF. “We have been portant figures in her life: her father. sisters to school; however, two of her ly subsided. In September 1996, the the department. This meant that the fighting for our people for as long as I younger brothers remained in the MNLF and the Government of the people were not getting some, if not Driven by her passion to further de- can remember. My family and relatives The loss of Kader’s father was a deep MNLF. “My brothers died of a heart at- Republic of the Philippines (GRP) most, of the services that the depart- velop her capacity to help others, Asec died for our cause. This is part of my blow to the family. He was the admin- tack because they were too young when forged the Final Peace Accord. This ment was supposed to deliver. Kader decided to apply for the Bridg- struggle and I will live up to it” istrator of their properties and was the they were trained,” she recalled with a gave birth to the enactment of the Re- ing Leadership (BL) Fellowship pro- one sending his younger brothers to heavy heart. public Act 9054 or the Expanded Au- Because of the Peace Agreement and gram of the Asian Institute of Man- For the CDA implementation, Kad- school. His death caused their family tonomy Act4. the work done by Bainon and Kad- agement. “I joined the BLF program to er formed and worked with a core to be at the core of the liberation move- In 1978, Kader began work as a stenog- er, not only did the national office improve how I lead. I wanted to share group5 first before they went down ment in fighting oppression. It was a re- rapher for the Department of Educa- Due to her extensive exposure to the of DSWD release money directly to what I’ve done and learn more from to the community. Through continu- flection of what was happening around tion, Culture and Sports (now Depart- areas of ARMM, she was appointed DSWD-ARMM, foreign donors also others.” Her involvement with the ous dialogue, she was able to establish them: families fighting against oppres- ment of Education) in Maguindanao. as ARMM’s Assistant Regional Secre- started working directly with the de- BLFP led to the formulation of Asec co-ownership of her vision with her sion with little or no understanding of Two years later, she decided to take tary of the Department of Social Work partment. Programs on humanitar- Kader’s vision and mission for ARMM immediate group. They reviewed the the ideals or reason for the struggle of an exam with the Office on Muslim and Development (DSWD). It was ian protection, disaster management, in line with the community work: targets of CDA and the challenges that the MNLF. “My family was inflamed to Affairs3 (OMA) and passed. Shortly not without trepidation that Kader child protection, women and youth, Poverty Alleviation through commu- DSWD-ARMM faced as lead agency. fight by personal reasons – fight first,- in afterward, she was transferred to Cota- accepted the post. The then ARMM livelihood, among others, received nity empowerment. Equipped with knowledge of realities doctrination later,” Kader shared. bato City to work as a cashier. Her time Governor Nur Misuari goaded to ac- funding from the different donors in the field, the group was ready to on the battleground had marked in her cept the post, telling her that each of now committed to peace building. Development: Community- deal with the challenges of alleviating Return to Education character a strong will to live and excel, them had to make sacrifices to be able This gave DSWD the much-needed poverty in a place that has known it and to have a deep social conscious- to make peace and development a re- resources for programs that can con- based and demand-driven far too long. ness, but this time, in the service of her ality in the region. Assistant Secretary tribute to poverty alleviation in the Two years later, Kader’s life took a dras- The efforts of Asec Kader in strength- Muslim community, in peace. (Asec) Kader also felt honored to be region, whose provinces remain the Ensuring greater participation, trans- tic decision. Her love for knowledge and ening and healing the fractured com- working with DSWD ARMM Secre- poorest in the country. The staffs, parency and accountability was dif- strong belief in the value of education led munities in ARMM came in the form tary Bainon Karon, a respected Moro which were initially wary of having ficult, if not impossible, in the region her to leave the MNLF and to return to The Challenge of of community-level programs. Kader woman leader and key MNLF figure. MNLF cadres at the helm, saw the sin- where datuism6 and nepotism are school. Her family did not take this de- assumed the position of Component Leadership in Post-War cerity of Bainon and Kader and decid- deeply entrenched. Questioning how cision lightly. They criticized her choice Manager of the Community Develop- ARMM The tandem of Bainon and Kader ed to support them in delivering the public funds are used may provoke because it is against the laws of MNLF ment Assistance (CDA) program that to obtain an education, as they believed helped improved the conditions of the programs of the agency. attack on one´s life, lead to being os- Pombaen Kader, driven as she was, included projects for capacity building. that getting an education would cause poor in ARMM. The DSWD before tracized by the community. Kader rose until she was promoted officer- CDA is a World Bank funded project that a person to be biased for the West. “I the two accepted the posts suffered Years later, Asec Kader found herself exhausted all means, strategies, and in-charge of the Administrative Divi- aims to provide community-based infra- had to leave my family for school. West- from credibility problems, particu- as the only MNLF leader occupying tactics known to her to make sure that sion. Although her professional career structure (CBI) through a community ern and Christian education is barred larly when it came to the effective use a high level position in ARMM. Her these principles are followed. She un- in the government flourished, the demand-driven process. Thus, the peo- by MNLF. But that did not stop me from of the funds for internally displaced Women Welfare Program (WWP) derstands the datu culture very well situation became precarious for her ple themselves are involved in determin- studying. I rebelled against my only fam- persons. The DSWD also dealt with specialist, Violeta Jennylen Yap, dis- and she uses that knowledge in her family. Two of her uncles died in an ing the priorities of their neighborhood. i l y.” Despite the challenges, she decided issues of decentralization (which has closed, “She is high ranking, but that work. Protocol requires that she or her encounter in Maguindanao as fierce They were given funding to build multi- to obtain help from an uncle and took a different character in ARMM com- does not stop her from going to com- staff clear the entry of the project in fighting between the MNLF and Gov- purpose halls, grain silos, and the likes. up a two-year secretarial course at Notre pared to other regions in the country). munities and talking to ordinary peo- any place with the mayor or governor, ernment resumed once more. “It was In ARMM, employees were assigned ple. She is also very determined in her who is also a datu. This is the oppor- Dame University, Cotabato City. Asec Kader vowed to do her job well another sugat (wound). The more that to the Municipal Local Government work. I guess these come with her being tunity for her to explain the project and promised to practice transpar- with the MNLF. She can talk to people at length, emphasizing the important

3 The Office on Muslim Affairs (OMA) was created by Executive Order No. 122-A dated January 30, 1987 as amended by Executive Order No. 295 with the mandate of preserving and developing the culture, traditions, institutions, and well-being of Muslim Filipinos in conformity with the country’s laws and in consonance 5 Core group is the working group of the Fellow under the Bridging Leadership Fellows Program (BLFP). They were selected by the fellow herself to help her with national unity and development. implement her program for her identified divide.

4 The strengthened and expanded Organic Act for the Autonomous Region in Muslim Mindanao (ARMM). The ARMM remains an integral and inseparable 6 Datuism is a system of government that is still being practiced today by some locals who revere the datu as the dispenser or lawgiver of death. This system part of the national territory of the Republic of the Philippines where the Regional Government will govern ARMM. developed Muslim culture and kept Muslim united in their struggles against colonizers.

108 109 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

details (i.e., how the funds will trans- ing corrupt here. This is the money of “Projects are sprouting like mushrooms institutionalize her goal, Kader pio- definitely earn profit). They have PhP Kader always looks for opportunities ferred, who will manage it, and how it the Bangsamoro7.” all over ARMM,” she noted. “It helps to neered a women-oriented activity en- 25,000 and will use it as capital for to help heal the wounds and rebuild will be used) and expounding on the fight the negative impression that all of titled Learning Livelihood and Food their projects. Now there are available relations among people with multi- very important role of the datu for the One of the key factors that led the ARMM is corrupt. It was hard in the Sufficiency (LLFS). pugon (oven), peanut butter, atsara cultural backgrounds. “I love my work success of the project. When problems success of CDA is the sense of own- beginning but I am proud and happy (papaya salad), or fried fish in the ba- where I get to help indigent locals, em- arose, she went back to the datu and ership of the projects exhibited by the with what we have done. We have de- Aside from promoting livelihood, rangay. You cannot expect them to be power women, and help the commu- used their pre-project implementation beneficiaries. The community and termined the process for CDA and devel- LLFS has formed a community among rich from that minimal funding, but nity improve their situation”. agreements as the reference point. other stakeholders are involved in the oped a manual. We have trained people, the 20,000 women who are involved in what is important is that they are edu- project process thereby generating involved the local government and the the program. The project reaches out cated and have learned from the pro- Badak, where the population is a mix Coordination took place through a enough communal sense of owner- community. Our projects are commu- to 100 women in every community cess. It is fulfilling to see it.” of Maguindanaon, T’edurays, and set- municipal team convened and em- ship to protect it. This is one of the key nity demand-driven. And we have been across 102 municipalities and 116 ba- tlers (Tagalog and Bisaya), has the 9 powered by the DSWD-ARMM that insights that Asec Kader has gleaned rated “satisfactory” twice by the World rangays in ARMM. Each woman is The Badak Story: building highest incidence of poverty in the six extended technical assistance to com- from working in an area of conflict. Bank. It shows that ARMM can do it.” taught basic skills for functional lit- barangays in the town of Datu Odin munity-based infrastructure projects. In armed encounters, CDA projects eracy and enterprise, such as reading, a better future through Sinsuat. Aseca saw herself bridging bridging leadership This team included a social worker, enjoy a privileged sense of protection Building a better ARMM writing, and simple mathematics. the poverty gap in this lace by empow- municipal engineer, and municipal de- because both the MILF and the mili- ering women in the area, key compo- velopment officer. In addition, the pos- tary are engaged in these community for women The participants of the program are Assistant Secretary Pombaen Kader nents in any poverty alleviation strat- itive feedback and acknowledgment development programs. The MILF mostly mothers who availed of the is in a position to leverage her lead- egy. Still another challenge is the low status that CDA interventions are good pro- refuse to damage community projects 150 hours of training. These sessions ership skills for the development of accorded to Muslim women. Most of jects also benefited the LGUs so that because of their involvement in its de- are conducted for four hours each on ARMM--especially the multicultural Badak is primarily a coastal commu- women do not go to school and have lit- government also gained credibility and velopment. Project ownership has led Saturdays and Sundays as the women communities. She recalled a history of nity where most people rely on fishing tle access to livelihood, information, and 10 goodwill in the community. Because of to sustainability and progress in these take care of their children and the the Moro and T’edurays , both indig- for their daily subsistence. The moun- opportunities. Many had accepted their the inclusive efforts, the negative reac- rural communities. She said, household during the weekdays. The enous peoples (IPs) in the area, tainous part of Badak produces copra status as “pambahay lang” (only for house- tion of the LGUs to the CDA projects modules used for training women and charcoal from coconut trees, and work) in a world restricted to home and within ARMM was minimized. “There have been cases when I had on functional literacy are injected “I believe that Moro and T’edurays some banana and corn are grown on family. They did not know what rights visited a community that had been with values based on the principles have the same ancestors: Manobo the hillside. they have as women and did not partici- Furthermore, the mayors of the 102 burned down by the MILF. The of Bangsamoro Development Agency brothers Mamalu (a fisherman) pate much in community affairs. municipalities were given orientation project infrastructure remained (BDA). This holistic development and Tabunaway (a forest food There were no elementary schools in sessions that led to their formulation intact. They do not burn down enables women to enhance not only gather), both living in the low- Badak. The children went to neighbor- Asec Kader showed her commitment of a Memorandum of Agreement the community center or the mul- their functional and entrepreneurial lands of what is now known as ing barangays if they wished to pursue to her vision of Poverty Alleviation (MOA) to support of the project. This tipurpose hall that has been built skills, but also to imbibe in them cul- Central Mindanao. Oral tradition elementary education. Women are through Community Empower- is a tool that Asec Kader has used in by the project because they have tural and community principles. has it that when Shariff Kabung- raised to be housekeepers. Moro and ment. She engaged women in capac- going around local politics that some- this feeling that the project belongs suan, a Muslim missionary came T’edurays did not trust of each other, ity building. She brought to the com- times interferes with the project. Apart to them. They worked for it in the Besides functional training, the wom- to propagate Islam in Mindanao, thus, the T’edurays stayed on the hilly munity some of the DSWD activities from this, she also conducted surprise bayanihan (cooperative endeavor) en also receive micro-financial as- Mamalu left and moved to the parts of Badak, away from the plains that were relevant to the needs of the visits to the localities to ensure the spirit. It is a success story.” sistance, which amounts to Php 1000 mountains near the Pulangi Riv- where the Moro and settlers were. It women, such as raising their aware- proper implementation and monitor- per participant for kabuhayan or live- er because he did not want to be was only recently that the T’edurays ness of their rights and the existence ing of the projects in accordance with Kader is proud to share that when lihood. Asec Kader explained, “That converted, while Tabunay agreed built their houses in the lowlands, of R.A. 9263 or Anti-Violence against the MOA. Asec Kader is firm on her the CDA was placed under DSWD- P1000 is part of the income-generating to be a Muslim. The Mamalu clan near the coastal areas but only if they Women and Their Children Act8. To stand: “Do not make the mistake of be- ARMM, it surpassed expectations. activity. Sometimes the group will have gave birth to the Manobo tribe of feel they can live peacefully with the their own gardening, food processing, today and the Tabunaway clan is others. or bakery projects. If they are a group, now known as Maguindanao.” tutubo talaga ang pera nila (they will It is clear to Kader that she wanted to 7 Bangsamoro was originally home to the Muslim sultanates of Mindanao such as Sulu and Maguindanao. These sultanates resisted Spanish colonial rule and were therefore not fully integrated to the rest of the islands. Two decades after the Philippines reclaimed its independence from the United States of America, the area was claimed by the Moro National Liberation Front (MNLF) who wanted it to become the “Moro homeland” separate from the Republic of the Philippines. However, claims were suspended due to a peace agreement in 1996. Currently, the Moro Islamic Liberation Front (MILF) seeks to establish an independent Islamic state in this area. 9 Villages. 8 This punishes any act or a series of acts committed by any person against a woman who is his wide, former wife, or against a woman with whom the person has or had a sexual or dating relationship, or with whom he has a common child…which result in or is likely to result in physical, sexual, psychological harm or suf- 10 T’edurays, also known as Tirurays are indigenous people who settled in the coastal and forested areas of South Cotabato. T’edurays share a common leg- fering or economic abuse including threats of such acts, battery, assault, coercion, harassment, or arbitrary deprivation of liberty. endary ancestry with the Maguindanao.

110 111 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories help address poverty, empower wom- the opportunity to run the project, partment of Education, farming assis- skills in negotiation. She noted that, Insights from the bridging is very important to me. I have left all en, and saw the opportunity to do so, the people built the center and are tance by the Provincial Agriculturists’ “Partner organizations and mayors will my programs to attend this. I have leadership program among others, in Badak and its tri- the ones working on the driers. All Office, and fruit processing technol- take sides. It is in this aspect that I have been committed and have promised people context. While she could rely on the POs know how much the pro- ogy training by the Department of been able to test the dialogue and con- to attend. This is what is important to Asec Kader’s leadership has been a whatever is available in CDA for Badak ject makes and where the funds Science and Technology. flict management framework of the BL. me because I know that it will help me source of inspiration in her commu- and the guidelines for its implementa- go. We also have a Barangay De- Yet, this is not a project to be politicized. in managing my projects. It improves nity. Yet, she attributed the success of tion, she still met with the group to dis- velopment Plan which we are able Kader’s passion for service moved It is the people who are implementing my strategy and approaches.” her projects to the participatory and cuss how the project could be best im- to follow. Personally, the CDA has the heart of her core group. The core this and failure to do so will be reported.” transparent nature of the programs plemented in Badak. She also ensured been a great help to me. Before, I group gets inspiration from her who In addition, Asec Kader modestly that were implemented. She credits the timely release of resources, moni- was shy; I wouldn’t speak or con- leaves her air-conditioned office and Another challenge is the cultural dif- and respectfully gives credit as well to the involvement of the people, saying tored their utilization, followed up on tribute during meetings like this. joins them in the field. The participa- ferences within the region. Differ- her peers in the BL program. She has that, “The people can see where it goes the results of the project. Now, I am more articulate, I share tory nature of the ASFP program is ent tribal communities have different learned, through her experiences, the because it is there. They have a sense of more. I am now able to speak for not only limited to the people in the strategies and cultures. The Tausug and importance of building relationships. accountability because it is released di- Kader talked with the barangay leaders my barangay.”) community since it is also being prac- Maranao, for instance, can have diver- The experience with the BL program rectly to the partner organizations that for both the CBI and LLFS, and then ticed in the core group. The BL pro- gent priorities. “As a bridging leader, I has helped her to realize the value of are trained to manage the money.” to the 100 LLFS participants in a more To date, the Community Based In- gram has taught Asec Kader to lead meticulously observe and learn how to working with other regional leaders focused way. With her core group, she frastructure (CBI) projects have pro- on-the-ground work. Kader said, deal with these idiosyncrasies of culture in initiating projects for the develop- Apart from the involvement of the helped the community which was not vided four solar driers and one multi- and tradition,” she noted. To deal with ment and progress of ARMM. community, Asec Kader also credits used to participation and demanding purpose center. The driers were built “I now personally conduct munici- this, the constituency must be well- the BL program, which she believes accountability, to go through the con- in four different locations to make pal stakeholders’ forum. I do it my- informed and the leader should be Indeed, Asec Kader has remained helped to strategize about some of the sultative process of CDA and make de- these accessible to different clusters of self instead of assigning it to some- aware of the ARMM strategy to ensure humble despite her success. She problems relating to LGUs. As a BL cisions on the projects and fund man- barangays. These driers provided a lo- one so that I can be more hands-on. that there is consistency throughout. shared that, “I am happy even if it will fellow, she walked through the pro- agement, as a community and later, as a cal facility for farmers, reducing pro- I understand now how hard it is Asec Kader shared that in dealing with end. The project life has been five years. cess of bridging people’s organizations people’s organization. Barangay Chair- duction costs. The center also earned to immerse. For seven months, we this, she has realized that, “It is a tough It ended on May 30, including June in addressing problems. This helped man Sinsuat shared, when used for private gatherings such worked in an evacuation and dis- decision-making process. You cannot for the terminal reports. I am happy reduce problems that arose because as weddings and other functions. The placement center to serve the evac- just be nice. There are situations where because somehow, our struggle – the projects were often co-terminus with “Ang gusto namin sa project ito ay Badak People’s Organization, formed uees and we took care of so many you directly decide and it measures your struggle of the MNLF for our Bangsam- the Mayors that supported them. The yung tinatanong kami at pinapa- as a requirement of ARMM Social things. I am happy to work with my leadership. Honesty and truthfulness are oro people – has been realized through incoming mayors would often drop kinggan kung ano ang kailangan Fund Project (ASFP), manages the people, serving my own. I am con- important. We only have our name to the implementation of the projects. these programs of the previous town/ namin at ano ang dapat gawin. two projects. tinuing the struggle in a peaceful uphold. When you say yes, you mean yes There is fulfillment in knowing that I province head. Asec Kader noted, “BL Ang mga tao rin ang nagpatakbo way. I know now that somehow it without a hidden agenda.” have served our community.” ng project; sila ang nagtayo ng Kader has a clear strategy to sus- can help. It contributes to develop- center at trumabaho sa driers. tain the efforts in Badak, which she ment and the alleviation of poverty Alam din ng lahat sa PO kung has conveyed to her core group, who to have projects such as easy trans- magkano na ang perang nabigay supported the strategy, that is, con- portation, solar dryers for farmers at saan ginastos. May Barangay vergence. Starting with the CDA re- and the education of the children. Development Plan na rin kami. sources made available for Badak, You will not see it instantly. Yet Nagagamit din namin sa ba- she brought in regular programs of there is a legacy that will be left be- rangay lalu na kapag may gustong DSWD that are relevant to the needs hind as we strive hard peacefully.” tumulong. Sa akin mismo, malaki of the place and as identified in its Ba- ang naitulong ng CDA. Dati, ma- rangay Development Plan (BDP). This Challenges in project hiyain ako; di ako nagsasalita sa will also encourage other line agencies meeting tulad nito, pero ngayon, in Maguindanao to complement these implementation maingay na ako. Magsasalita ako efforts in the spirit of convergence. The five year-CDA project ended in para sa aking barangay. June 2010. Some projects had been put She is moving fast – on January 27- off till after the elections. One of the (“What we like about the project is 28, a barangay assembly was held in major challenges has been politicking that we are consulted; we are able Badak with these line agencies and which has, in fact, tested Asec Kader’s to express what we need and how where pledges were made such as al- proceed with it. We too are given ternative learning system by the De-

112 113 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

Aurora Sonia Lorenzo, mayor of San Isidro, Nueva Ecija, is widely There was a very low standard of living instances. The farmer leaders structure that stopped the programs credited for the fast-paced development of the municipality. She is especially for the farmers in the area. attributed this to the failure in from filtering down its benefits to the “The greatest divide was poverty,” Mayor leadership and followership.” ground. She spent two terms in office one of the six fellows who belonged to the first batch of the Mirant Sonia recounted. This was not to say that trying to get things to work out. Then Leadership Fellows Program. This is her story as a Bridging Leader: nothing was being done about the situ- The presence and persistence of the she finally joined the Mirant Leader- ation. As was typical of areas in Central cooperatives hinted the struggle of the ship Fellowship. Luzon, farmers in San Isidro have been people to uplift themselves from the exposed to community development ac- poverty. But these cooperatives failed Leadership Capital: Drive, by implementing many community Analysis of the Divide: projects her husband supported. tivities since the time of the Hukbalahap to address the development needs of Trigger, and Sustaining (after the Second World War) organized the community. Lack of Ownership and Factor She proved effective in this role so that through the Samahang Nayon, and in the Skills Caused Program to in 1998, four days before the local elec- latter years, through farmers’ coopera- The local government has a crucial role Fail “I can attest to her outstanding tions, after the party successfully con- tives. However, these included a signifi- in addressing these problems, but it reputation as a professional lead- vinced Sonia, she was drafted by her cant number of failures especially in the had its own share of problems as well. “The BL workshop was an ex- er and executive competence. As husband’s political party to run for management of the cooperatives. Of the The employees had low morale; they perience that made a difference the Chief Executive of one of the mayor of San Isidro to replace a dis- estimated 50 cooperatives in San Isidro worked independent of each other. The to me. Being a mayor for six municipalities in the 4th District qualified candidate of her party. Think- registered with the Cooperative Devel- LGU had no programs on basic servic- and half years, I thought I have 2 of Nueva Ecija, she championed ing that she would not win anyway opment Authority (CDA) , only nine co- es and just waited for whatever projects experienced all kinds of events the cause of the marginalized sec- since there was no time to campaign, operatives were active and operational in the wind blows its way. The municipal and have met all types of people. tor by subscribing to the govern- she accepted the nomination and ran. her first term. Mayor Sonia recalled, hall, which served as a fort during the Listening and interacting with Aurora Sonia R. ment thrust of addressing poverty Spanish time, had certainly seen better other fellows have given me the Lorenzo alleviation…” – Rodolfo W. An- To her surprise, she won. Sonia found her- “In the early 1980s, San Isidro days, some parts of its structure were inspiration that I can do better. tonino, Representative of the 4th was one of 3 pilot sites (the under threat of collapse. The lectures taught me how to do Mayor self at the helm of a local government unit district of Nueva Ecija, (2005). that was in financial disarray, with bloated other 2 were in Pampanga and my best in what I was doing. It San Isidro, Nueva Ecija and demoralized bureaucracy, and a mu- Pangasinan) to implement an in- A “dole-out mentality” was prevalent. was so comforting to know that I 3 As a child, Sonia was trained to face nicipal hall that was in shambles. tegrated farming system. Out of For a time, people formed long lines have my mentors to help me and challenges and do her best in every sit- the PhP 12 million funds allocat- extending from the mayor’s office on who understand that I get tired uation. At a young age of seven, she was “It was in a sorry state,” she recounted. ed for the 3 sites, San Isidro cor- the second floor all the way past the and burned out also. I believe already pushed by her relatives to excel The LGU produced no outputs and nered PhP 10 million owing to gates of the municipal hall in hopes of the BL training course should in school. Her aunt, who was a teacher, even had budget deficit from all the the excellent performance of its getting alms or money be a requirement for all LGUs always reminded her to maintain her debts that the previous administration borrowers. The program’s reach and leaders of the community.” - high grades and that she should always left behind. “So what do I do about it?” expanded from one barangay to Mayor Sonia used to ask herself, Mayor Sonia, July 25, 2005 Log- be at the top of her class. Whenever she She asked herself then. several others including in the “Bakit hindi magawa-gawa ng mga book Reflections joined competitions, she was always neighboring municipalities. It mayor yung kadali-daling bagay katu- expected to win first place. This was It was a challenge she took seriously. improved farmers’ income but lad ng basic services?” (Why couldn’t With training inputs, tools, and semi- how she worked her way through for- increasing costs of commodities the mayors do such an easy thing as nal discussions with her peers and mal education. In 1967 she graduated necessitated further borrow- providing basic services?) But when mentors, she was able to further ana- ocietal ivide he from the University of Sto. Tomas with S D : T ing. After 5 years, funding for she took on the role herself, she found lyze the societal divides of San Isidro. a Bachelor of Science degree in Chemi- Challenges of San Isidro, the program ended. The farmers out that things were easier said than She identified two main causes of cal Engineering. Nueva Ecija then organized themselves into done. She labored to form programs the failure program implementation. a cooperative to avail of financ- that would address the needs of her First, there was no ownership of the She married Victorio Lorenzo of the When she first sat in office, San Isidro ing from Land Bank and other constituents and bring them down to projects implemented on the ground Lorenzo family, a known family of poli- was a 5th class municipality. It con- institutions. Mismanagement of the local level for implementation, but as there were no consultations done This write-up was written by ticians based in San Isidro, Nueva Ecija. sists of nine barangays1 and covers a coop funds however led to the these did not successfully materialize. with the people in the community. Philip Dy under the supervi- In 1992, her husband was elected rep- total land area of 7750 hectares, 80 failure of the initiatives in many There was something wrong in the Second, the people who implemented sion of of Prof. Ernesto D. resentative of the 4th district of Nueva percent of which is agricultural land. Garilao, faculty at the Asian Ecija. During her husband’s term, So- In 2005, the population was estimated Institute of Management. nia became involved in public service at 45,000. 2 The CDA is mandated to promote the viability and growth of cooperatives as instruments of equity, social justice, and economic development in fulfillment of Section 15, article XII of the Constitution.

1 Villages. 3 In this system, farmers plant rice and other crops and raises animals to maximize income.

114 115 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

the programs had no skills with which urgent needs of the community. The When she was chosen as fellow, she “After explaining the role of BL to view the problem and address it employees needed to be empowered, brought the issues she faced to the advocate, every participant visu- from a systemic point of view. and the residents be given the chance table. Sonia’s vision was to ensure a alized where they stand in the to participate in the changes that were better quality of life for the people of community. It was very gratify- The second cause was immediately to take place. San Isidro. She deemed it her role to ing to listen to their views and more relevant to her and the LGU. For capacitate the local government of San insights. Finally I found myself example, improving the physical con- But first, she had to change herself. Isidro in implementing and sustaining in these people.”- Mayor Sonia, dition of classrooms is not enough to socio-economic development and did January 18, 2006 Logbook Re- improve the quality of education, un- The Personal Response: so through collaborative programs in- flections less principals and teachers are trained volving the residents. ransforming erself and in terms of competence and curricu- T H It became clear to Mayor Sonia that lum development. Also, in matters of her Institution She re-energized her bureaucracy and she should expand Bridging Leader- health, sick people would always get broke away from the traditional LGU ship approach to others. She looked sick and ask for medicine unless the “I am reminded of my role as the Lo- culture of pride and patronage poli- for ways to promote collaboration health personnel teach them how to cal Chief Executive of our town. I have tics that hinder it from performing its among the different groups and sec- keep themselves healthy. to work harder to bring about the real- functions effectively. tors involved. She also became con- ization of our dream.” – Mayor Sonia, vinced that the program implement- Something has to be done in order to May 26, 2006 Logbook Reflections When asked what her experience was ers should also be bridging leaders. systematically address these factors. with the traditional system, Mayor So- Mayor Sonia quickly realized that de- When she first took her office, Sonia nia shared that other mayors tend to In January 2006, Sonia invited the AIM- spite the challenges that she had to over- was unprepared for the responsibil- think that they are above others. They Mirant Center to give a two-day Bridg- come in her organization, she was in the ity and tasks that it entailed. “I had no did not want to listen and were not ing Leadership seminar to the multi- best place to effect necessary changes. background in public administration,” open to dialogue with their constitu- sectoral leaders in her municipality. The she shared. ”but I knew it was only a ents. LGU projects have always been participants included farmers, women, matter of management strategy.” She de- done through a “top-down” approach, The Unique Role of the youth, educators, local Gawad Kalinga Figure 2: The CCSI Structure and its Members cided to hone her vision and concept of ignoring the reality that these pro- team, municipal line agencies from agri- LGU public service. She put to use the man- grams may not necessarily respond to culture, health, social development, hu- agement skills she learned from her in- the needs of the community. man resource development, and mem- ter quality of life for the people of San tivated and inspired me to push “Governance implies wielding of volvement in her family businesses. She 4 bers of the Sangguniang Bayan . She Isidro through the collaborative ef- the development of San Isidro power, authority and resources became involved in other organizations Mayors are also used to “taking care” of selected participants who held leader- forts of different sectors”. The shared with the groups’ collaboration.” to resolve and meet problems, and learned their structure. She held their people by giving them money es- ship position in a group or organization mission was to improve the capacities needs, and demands… As the several offices in different civic organi- pecially during the elections and/or ap- and showed willingness to work with of institutions to plan and implement Members of the CCSI organized duly elected chief executive of zations in Nueva Ecija and worked on pointing them to offices even if they are other groups. They were also required collaborative socio-economic pro- themselves into different commit- the Municipality, the perfor- issues such as governance (League of not qualified for the post. These harm- to have programs that were currently grams and to improve the capacities of tees to tackle key programmatic con- mance [of one’s] duly established Municipalities) and women in develop- ful practices often push the mayors to implemented. the constituency to effectively partici- cerns–education, health, livelihood, development roles and responsi- ment (Samahang Ina ng Kababaihan appropriate public funds to sustain and pate in the governance of San Isidro. housing—but eventually expanded bilities to [one’s] constituencies at Pantahanan (SIKAP). She also ac- reinforce the ties of dependency. The seminar resulted in the formation When asked about the experience, into peace and order, environment, are of paramount concern…” tively participated in various training of the Critical Coalition of San Isidro Mayor Sonia said, and values after another BL workshop Mayor Sonia, Logbook Reflec- programs that tackled issues on good She sought and demonstrated a way of (CCSI), a group of farmers, members in July 2006. Each committee met tions governance, solid waste management, governance that is different from the of the academe, youth, women, busi- “The BL workshop in Calaba was monthly to discuss ways to work to- managing livelihood projects, literacy ingrained practice. In order to do so, ness, religious group, NGO & LGU In order for San Isidro to develop, she a success… . I felt I have a group gether and became a venue to deepen and education, health, among others. all these needed to change. leaders advocating Bridging Leader- believes the municipal government that I can depend on in terms of their understanding and reflection on ship through collaborative action in has to practice effective governance. development programs. I feel also being a Bridging Leader. It was during this time that she at- Armed with what she has learned, she order to achieve a shared vision. CCSI Its people need to learn fiscal manage- that they know what I am talking tended Bridging Leadership Train- set about the task of reorganizing her defined their shared vision as “a bet- ment, efficient domestic resource gen- about… . The workshop has mo- Since its formation, CCSI came up ing Workshops at AIM. As early as bureaucracy. eration, and build capacity to under- then, she thought that the program take local planning and development was what she needed to be effective in The Collective Response: 4 Municipal legislative body. for programs on basic services. These what she does. This pushed her to ap- plans and programs should respond to ply for the fellowship program. Formation of CCSI

116 117 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

with new programs, followed-up with ers’ share after the harvest. I also and responsive institutions.” – “Strong citizen’s participation the greatest difficulties in engaging. themselves to avoid confrontation old ones, evaluated them, and solic- used my social capital as a coun- Mayor Sonia in a Recent Speech and added skills in addressing and demoralization or has not ac- ited for advice on what should still be cilor by asking the mayor to be societal divides enabled us to im- Dialogue as an Important cepted the LGU as part of the team. added thus democratizing the internal a partner in the barangay work.” The new arrangement of the CCSI led plement efficiently and effective- CFC priority is transformation of processes in the municipal govern- to changes in the way the projects are ly… to respond to the growing and Effective Tool: The everyone involved in the project ment. The committees took planned, Leo, a recently-elected president of a handled. The people chose the projects needs of the community. These GK Experience while LGU priority is making the reviewed, supervised, monitored, and farmers’ cooperative, narrated, and pushed for more outputs through programs became our capital in programs work for the beneficiaries evaluated the projects of the munici- the CCSI. Even without her prompt- forging partnerships with stake- “When I am in meetings, dia- of the GK village. The divide result- pality. The the CCSI became the “arm” “I accepted the presidency because BL ing them to do so, they look for projects holders.” logues, or assemblies, I noticed ed from the differences of culture; of the Local Special Bodies that would made me aware of my personal qualities. that benefited the community. They also that I have changed in my style CFC is spiritually motivated while implement and handle the projects on The community (Mangga) is divided be- learned to prioritize projects that come The government has limited resources of engagement. I now consider LGU is motivated by Vision-Mis- the field. They make project decisions cause of politics. In one of the activities of to them instead of blindly implement- that are not enough to address all the the outcome of the issue more sion of a development plan.” on the ground and inform the mayor of the barangay, I suggested to the barangay ing them like before. One example is a needs of the community. Support such than my opinion of the subject. I their decision after. captain to call an assembly to get the con- project worth PhP 500,000 that proposed as financial resources, expertise, work learned to write what I hear and The Gawad Kalinga program pulls re- sensus for the barrio fiesta. Nagulat ako,(I to build an arc to mark the border of the force would have to be tapped from decide based on what I have writ- sources to the communities it is in. A typical monthly meeting of a CCSI was surprised)100 people attended. I told municipality of San Isidro. This was not external institutions or from the com- ten. The outcome is tremendous. This, however, come with expectations committee started with individual sto- them, “I can’t do this without you. I need pursued. One CCSI member said they munity itself. Mayor Sonia realized that People I dialogue with thank me from and accountability to their for- rytelling on the Bridging Leadership you to help me.” I broke the tradition by can always defer the construction espe- if she had to gain the trust of stakehold- and leave with smile on their faces. eign funders especially. The resources experiences of the participants. This introducing a system in planning for the cially since it’s too costly, and they’re not ers she had to first start with the largest This is a clear indication that BL is it pulls in are enough to make munici- was followed by inputs and discussion event. I am the youngest of the group but learning anything new from it anyway. group of her constituents: the farmers. working.” - Mayor Sonia August pal mayors interested, but this does not of relevant materials. During these ses- gained the people’s trust and got their co- 16, 2006 Logbook Reflections guarantee actual support from LGUs. sions, they made it a point to maintain operation by being transparent, flexible, To rationalize projects, each committee in She began a series of consultation and an atmosphere of openness and dia- and open to their suggestions. I also lis- the CCSI comes up with its own Key Re- dialogue with the different groups. Gawad Kalinga is a benefit to most Mayor Sonia believes that GK needs logue throughout the session. In one of tened instead of doing the talking. I learned sult Areas and Performance Indicators for In one such instance, she was unde- communities; however, its presence the support of LGUs in order to ensure the sessions, Mayor Sonia recalled, self-mastery in BL. I started a new trend its sector. Each began to push for output terred by the weather and continued in some municipalities led to division. its sustainability. She expresses her in a very traditional culture of celebrating not only for themselves but for others as the meeting talking at the top of her This happens whenever GK stake- concern that the Couples for Christ “For 5 hours in sharing, discus- the fiesta and collected money more than well. In fact, committees criticized those voice (because of heavy rains) while holders (team, beneficiaries, and oth- (CFC), which is behind GK, focuses sion, and fellowship I noticed enough for the expenses we needed. The who were not performing and no longer her feet were immersed in floodwa- ers) find themselves at odds with their more on faith and passion. The group that everyone was high in spirit, fiesta celebration was a success. I hope this wanted to work with those who did not ters.5 She realized later that this won local government. In San Isidro, much lacks technical skills to implement joyful, and talkative. The result will be tuloy –tuloy (sustainable). deliver outputs. Mayor Sonia reflected, “I for her the respect of the farmers. This frustration was felt in the early peri- and sustain the projects. The work of was amazing when we spent see my BL advocacy working in different became the entry point of the agricul- od of the engagement between LGU LGUs is more extensive and long term time in storytelling and hearing For the CCSI members, the Bridging sectors through these people. The divides ture office in organizing the farmers and GK. Mayor Sonia shared that especially since they are the one who reaction from listeners before Leadership perspective affirmed what of the town are made narrower through into a cooperative and their eventual there was difficulty because GK did will make sure that the projects stay the readings and discussions. We many of them have been doing in the their own understanding of how they can integration into DAR. not seem to understand the processes and the beneficiaries continue to be have journeyed together and be- past. Moreover, undergoing the Bridg- bridge…their own efforts.” and dynamics of the local government a community. LGUs will eventually came a part of everyone’s prob- ing Leadership training together gave Another important group that she unit. Mayor Sonia wrote: support programs on health and edu- lem, solution, and success.” them a common language to relate Within the LGU, the improved rela- worked with was Gawad Kalinga (GK) cation in GK communities. their experiences. tionships resulted in faster action on that has villages in San Isidro. GK ad- “The GK-CFC and LGU divide is Cesar, a farmer leader and a councilor projects. A friendly competition took dresses the need for socialized housing wider than I expected. The expec- In order to have a smoother relation- tations from our foreign funder in his barangay related to the group, Moving Towards Co- place between the different depart- of farm laborers in San Isidro. Farm ship between GK and the LGU, Mayor ments and fueled their drive for output. laborers head families who used to set- partners are very high. The national Sonia insisted that they meet regularly “The farmers needed gravel for Creation They were careful to keep the relation- tle along the irrigation canals, and be- team on the other hand, does not and discuss programs and concerns. the road to their fields and also ship complementary and collaborative. longed to the poorest in the community. address the issues or complaints “My course of action is to engage the “I realized that there was a pro- to repair the drainage system. of the funders with the LGU. My CFC team in more dialogue and come cess: the BL process, which made I initiated a dialogue with the It is with this sector that she experienced impression is that the CFC team up with a system that is focused on the possible the need for people to go Multi-stakeholders farmers and we agreed to do a wants to resolve the problem by status of the beneficiaries to comple- through a process where they will bayanihan by collectively shar- Engagements: Governance co-own the issue and co-create… ing on the required PhP 17,000 with the People leading to empowered citizenry pesos and collecting the farm- 5 Some consider Mayor Sonia an elitist because of the way that she carries herself, having married into an established political family in Nueva Ecija.

118 119 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

ment the volunteerism strategy of the threatened to remove her from office. made it clear that the fight was not about and offered the services of law- Year Families Annual Co-sharing of Capitation from RHU Additional CFC,” Mayor Sonia shared. In June 2006, Sonia faced a political her but for the LGU programs that were yers, intermediaries, and point Covered Enrolled Premium Beneficiary PhilHealth Salary 20% of crisis when the Commission on Elec- on-going. The different multi-sectoral men who claimed to have great LGU Share P200/yr Capitation She collaborated with the CFC team, tions (Comelec) reversed an earlier groups mobilized support for her. There connections at the Comelec and and their activities eventually fostered decision of the Regional Trial Courts were even those from both ends of the the “magical” ability to deliver 1 2 3 4 5 6 a working environment that trans- and declared his opponent the win- spectrum in the religious sector who everything she wanted-all for a 2004-2005 2,203 264,360 241,396 660,900 132,180 formed the once tension-filled rela- ner of the last election. Commis- banded together and organized prayer fee, of course… I am happy that 48.6% of families enrolled x 200 tionship into a better and harmonious sioner Borra of the First Division of meetings in her name. Mayor Sonia said, Mayor Lorenzo never yielded to one. In one important meeting, they the Comelec ordered Mayor Sonia to the temptation of going for what 2005-2006 6,347 761,640 583,924 1,904,100 380,820 46% of families agreed to settle whatever difficulties immediately relinquish the duties and “The community took my politi- appeared to be the easy way out.” enrolled x 200 they would encounter at their level to functions as mayor to the other party cal crisis as their own and made lessen the conflict first before going upon the finality of the decision. But moves to counter the bad cam- Someone from the other camp who 2006-2007 8,157 978,840 597,200 2,447,100 489,420 48% of families down to the communities. Mayor Sonia turned this hindrance paign of my opponent. One of questioned her legitimacy had even enrolled x 200 into an opportunity. She recounted, the CCSI member said, “Your shared they were surprised when they They now have better coordination; political crisis becomes our cri- realized that what they had done was the CCSI Committee for Housing “…my opponent used this deci- sis and we will help to protect an unpopular. “Bridging Leadership,” TOTALS 5,012,100.00 1,002,420.00 meets with GK regularly. The CFC sion to create tension and political the work we are doing.” Even Sonia said, “can make the difference.” group has even created committees instability in San Isidro. I opted to the Ombudsman cooperated by She was able to finish her term with- or teams that coordinated with the address this crisis by fighting for finding Commissioner Borra li- out further interruptions. LGU. Despite the different govern- what I believe is right and just, able of the Comelec computeri- Annual Net Income for Farmers ment structures present in GK com- instead of yielding to the “lagay” zation issue.” New Institutional munities, (GK itself, the villager’s or being asked from me by the first 2001 69,174.00 homeowner’s structure, the LGU, the commission. Paying my way out The Comelec subsequently ordered to Arrangements: The New 2002 127,917.00 national government) there is now would have been easier and fast- defer any action on the instant Motion Face of San Isidro harmony among these systems. er but that would be against my for Execution (of the previous order) 2003 141,032.00 principles and a grave violation of pending Motion for Reconsideration “We had to do things differently. 2004 160,705.00 the advocacy I am working hard and elevated her case to the Commis- We had to revise the old things Cost of Leadership: Risks 2005 151,768.00 for. However, my crisis situation sion en banc. that had to be done. People were of the rade T gave me the opportunity to test now involved, we looked for ac- Table 1: Annual Net Income for Farmers my bridging leadership.” In recounting the incident, her lawyer, tual results, we needed partner- “Paying my way out would have Atty. Aspiras, had this to say regarding ships, programs had to be new Annual LGU Budget Amount for San Isidro been easier and faster but that She used her relationship capital ex- the situation, innovations.” 1998 18,050,934.00 would be against my principles tensively, approaching lawyers, revis- and a grave violation of the ad- 2001 24,541,391.00 ers, the Senate, the Congress, the gov- “Comelec insiders, including a “Mam, maganda talaga pala ang vocacy I am working hard for.” - ernor, the business groups, the media, former Commissioner, have been nagawa natin. Malalaking tao na 2004 42,049,815.00 Mayor Sonia, July 17, 2006 Log- the religious sector, and the people of congratulating me these past few ang kumakausap sa amin.” - Cely book Reflection. 2007 55,196,824.00 San Isidro to defend her cause. Mayor days for succeeding in prevent- Franco (San Isidro Budget Offic- Sonia recounted, ing the First Division from in- er) to Mayor Sonia Lorenzo, said Table 2: Annual Budget Amount for San Isidro Mayor Sonia reflected that as Bridging stalling Villareal as Mayor of San after the August 15, 2006 Public Leader, there were many difficulties that “I asked them to help me explain that Isidro on the basis of faulty, erro- Presentation of the Fellows at ship, participation from different sec- the municipal government also increased she had to face. As the local chief execu- I won fair and square by distribut- neous decision. Those who know AIM. tors is now integrated into municipal its revenue. San Isidro has the second tive, she has to make sure the needs of ing the court decision and a personal that we did not pay, nor succumb programs. The method of program im- highest business tax collection of the 28 her constituents are given enough at- statement… I spearheaded a collabo- to the pressure to bribe, were Sonia’s persistence and good work and plementation has also changed because municipalities in Nueva Ecija. They ex- tention and time. As she engaged other rative action on the problem --in pro- even more elated, saying that this the effectiveness of CCSI have started of participants. The income of farm- perienced 186.65% growth as of March stakeholders, she had to continually tecting the programs and the image of is one of those rare exceptions to show tangible results for the mu- ers has increased through integrating 31, 2006. It also has the fifth highest col- build and maintain relationships with the town we are building.” when principle triumphed over nicipality. social and economic development in lection in terms of fees and licenses in the individuals and institutions. As a politi- money at the Comelec… . I am their Livelihood CCSI Committee. province. She was also able to increase cian, one of the most difficult challenges The response was overwhelming. Sup- aware that in not a few occasions, San Isidro has now become a 4th Class the internal revenue allotment and in- she faced were political power plays that port from various sectors came but she the good Mayor was approached Municipality. Because of co-owner- Along with the income of the farmers, come (see table 2 on page 119).

120 121 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

- MAYOR LORENZO CO -CREATION MODEL The mentoring sessions were also very She shared, “I attribute my success in Another project is the School-Based In the May 2007 elections, Mayor helpful, especially in giving direction to increasing the budget to the efficient Management System that DepEd will Sonia’s party conducted an informa- M ay or her work. She shared this piece of advice and effective implementation of pro- pioneer in San Isidro wherein the tion-drive campaign where they re- ex ter nal gov er nment that made an impression and enabled r esour ces r esour ces jects and programs. The constituen- community itself would manage the ported what the community has ac- her to focus on her work more, mentoring suppor t cies trusted my administration and school. The project will run in Sto. complished and what they still plan

are happy with my performance.” Cristo School but will be replicated in to do together. The following is an ex- OF IMPLEMENTATION “Prof. Titong Gavino said, “Don’t lobbying agenda

other schools in the municipality and, cerpt from their “Ulat sa Bayan”, enter all open gates. Be selective

PROGRAMS if successful, nationally. I mpl ementi ng Critical Local Special by considering what I want my-

ealth rograms , H P coaching , monitoring

, “Ang pagsulong sa kaunlaran A genci es C oal i ti on members B odi es & self to be doing 20 years from members (cooper ati v es, , of S an Municipal ay kailangan ng sama-samang CSOs, etc.) Offices now.” I have never evaluated The Rural Health Unit in partnership Livelihood

I sidro PROGRAMS

kalinga at responsibilidad ng agenda myself as such. I do things as with PhilHealth addressed the health convening gobyerno, simbahan, mga sek- task and take opportunities as needs of almost 9000 families in San Apart from the increase in the num- IMPLEMENTATION OF Isidro. San Isidro is the 77th member ber of cooperatives, the Philippine- ta ng relihiyon, mga organ- a good chance to improve pre- Figure 3: A Diagram of Mayor Sonia’s Co-Creation Model municipality of PhilHealth and ranked it Israel Center for Agri Technology isasyon, pribadong sektor, at sent work. I guess I have to turn as one of the four best performing mu- (PICAT) has chosen San Isidro as one buong pamayanan… . Ang mga down the TV hosting of Arlene nicipalities in the country for innovation, of the two pilot areas in Central Luzon magagandang balita ay bunga of NET 25, and doing too many which is not a small feat considering it is for technology transfer and improv- ng maayos na pamamalakad advocacy. This is the first time a 4th class municipality. In fact, its health ing farming methods using modern ng Pamahalaang Bayan ng San Mayor Sonia copped a landslide vic- Mayor Sonia believed that she under- also that I realized that when I programs are now being replicated in technology and giving of post harvest Isidro. Namulat tayo sa tamang tory against her opponent. She led her went a deeper transformation within do my work, I only consider the municipalities all over the country. facilities. pamamaraan ng pagpapaunlad closest opponent by 3000 more votes herself before she was able to change programs and projects. Learned ng ating bayan: ang pakikiisa ng in a voting population of 30,000. those around her. “It’s true that trans- from Prof. Gavino that putting bawat mamamaan sa mga pro- the names of people behind the The municipality has a complete staff of Housing formation should start with the CEO two nurses, two doctors, two dentists, grama ng ating pamahaan, ang “The recent election is the best indica- of the community,” Mayor Sonia re- programs/projects will make my panatiliin ang katahimikan ng work more interesting.” two medical technologists. One of the As the relationship with GK improved, tor of my BL application… .” she shared flected on the Bridging Leadership ating kapaligiran, at ang pag-ii- current projects in San Isidro is the com- so did its involvement. GK has now later on. “People worked hard to cam- process. “The municipal employees sangtabi ng sariling interest para And then she built the CCSI to de- puterization of the health database sys- proposed to build houses not only for paign in an atmosphere of love and being co-owners should adopt the sa kapakanan ng taong bayan.” mocratize the internal processes of tems. Mayor Sonia shared that this is due select villages but also for the whole trust. It was this strategy that resulted new system of collaborative work.” the LGU, improve the mechanism of to the improvements in PhilHealth and town of San Isidro (township develop- in an overwhelming victory.” She fur- She also prohibited vote buying and implementation, and build a core of the fact that the largest portion of IRA of ment In fact, CFC has even decided to ther shared, “In the end the people She started by improving her skills. convinced the people that; “Tayo ang Bridging Leaders in her municipality. the municipality goes to health (10%). do a case study on their engagement reelected me because they wanted to As a Mirant Fellow, exposure to the ehemplo, panindigan at prinsipyo… . and work in San Isidro. They want to continue the kind of governance we are Bridging Leadership framework and Simulan na ang magtanim ng mabubut- Finally, this improved their capability to document what CFC has done and is having.” But above all, she believed that to the other fellows allowed her to ef- Education Programs ing gawain, dahil sino pa ang aani, kundi do collaborative work that led to the suc- currently doing in San Isidro that ena- “... this, more than anything, means fectively work on her chosen divides, tayo, tayo rin.” Her platform of govern- cesses that San Isidro is enjoying today. bled them work harmoniously with that there has been a transformation Ateneo Center for Educational Devel- ment was sustaining the collaborative the LGU and be successful in their with the electorate due to the collabo- “I feel lucky my divides are within opment (ACED) has made the town effort of the people. Mayor Sonia shared, “I learned the importance of the projects. The result of the study may rative work that we have done so far.” my circumstance and workable a pilot area for its countryside under- “In all my talks, I informed my constitu- process in engagement that re- be helpful in coming up with models through well planned strategies. The takings. It worked with all the 15 pub- ents that what we have accomplished is sulted to a collaborative action. I lic schools in San Isidro to strengthen for other provinces. Sonia’s Journey as a road map is a convenient guide for the outcome of people empowerment my implementation. It is easier for enjoyed the art of journeying with community ownership and partici- and by upholding fairness, transparency, Bridging Leader the people who made me a part of pation in schools management. This me to locate where I am and should Re-election and the and accountability in all the institutions be in my work. It is a perfect tool to them. I gained the confidence to program with ACED addressed the “I have not changed my beliefs Transformation of the involved.” She continued to do this de- keep one focused. In the lecture of work “out of the box” and the im- 90% literacy goal of CCSI’s Education and convictions that faith in God spite rampant stories of vote-buying by Prof. Ned Roberto on social mar- portance of focusing when ideas Committee. PATHWAYS for Higher Electorate comes first. But in 12 months I the rival political party to the mayoralty keting, the segmentation principle kept on coming. I have main- Education and Synergia Foundation learned to be effective by sharing office. She held her faith and did not sway is the most applicable for our com- tained my credibility by being also come in for an intervention on “I have to stand on my own in- my thoughts and listening to the in her convictions. munity. Segmentation is more man- honest in what I say and do. Most the tertiary education of the students tegrity... I should be able to win thoughts of others and then con- ageable and easier for the barangay of all I realized that programs and in the area. or lose on the basis of character solidating. and performance.” It came as a welcome relief then when health workers to understand.” projects can be sustained if each

122 123 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

person in every sector is made New History of San Isidro came at a time when there was a great “Hindi ako mayor or governor. Wala akong ganoong position in aware that he or she is an integral need to respond to the basic needs of part of the whole. BRIDGING “In advocating these programs our people, especially the poor in San government. (I am not a mayor or governor. I do not have such LEADERSHIP has made all of we have been exposed to a high Isidro.” She further reflected: position in government.) But I learned that leadership capital these possible.” standard of governance. Then can be built. When you build relationships, you get trust. Then suddenly we find ourselves want- “I could not have done any pro- together with your stakeholders you have to deliver results so Among the other changes that she ing to do more. And then we gram alone. It is the shared vision noticed within herself, was that she learn the true meaning of servant- and collaborative efforts of the your leadership will be credible.” increasingly began to take uncompro- leadership. That ‘in serving the community that led to the success mising stances. She further reflected poor we become a symbol to our to the programs. We implemented that if you don’t compromise and do people’.” - Mayor Sonia, March 9, the programs to respond to the This is how Dr. Alinader Minalang, That is why as early as then I already the right thing, “… it becomes a harder 2007, the end of a speech given at needs of the people most especial- Integrated Provincial Health Officer wanted to help give the people of La- battle, your reputation is placed in line, Saint Mary’s University in Bay- ly the poor. And we did a resource (IPHO) of the Department of Health nao del Sur health access.)” but you become stronger and eventu- ombong, Nueva Vizcaya. mobilization by bench marking (DOH) in Lanao del Sur described his ally things will fall into its place. There and partnering with stakeholders personal leadership journey. Years later, when he was in his youth, is no substitute for doing what is right.” Despite the costs of leadership, Mayor that responded to the program. his 18-year-old cousin suffered from Sonia finds solace in the fact that she is Minalang was born in Madalum, La- typhoid fever that resulted in a com- She has learned to say no to political not alone. After the difficulties in -cre This participation and ownership of the nao del Sur to a humble family, with plication of the brain. “He was sent pressure applied to her from both the ating a new reality, a next stage came problem and the solution of the prob- most of his relatives working as farm- to traditional healers. Hindi alam ng Congress Representative and the Gover- when the people not only journeyed lem through projects went hand in hand ers. They lived in poor health condi- mga tao noon kung ano ang tamang nor. This happened in the case of a com- with her, but began protecting her. with the empowerment of the people. Dr. Alinader tions due to lack of facilities and ac- gawin. Ang akala nila may masamang pany (Westech) that wanted to convert a God has given me a mission.” Mayor Minalang cess to medical care in the area. But spirit sa pinsan ko (He was sent to tra- piece of land in San Isidro into a memo- She recalled that whenever she visited Sonia said in her graduation from the realities did not seep into Minalang’s ditional healers. The people did not Integrated Provincial rial park, whose approval for business she outlying farms or other faraway settle- Mirant Leadership Fellows Program last consciousness until tragedy struck his know what the right thing to do was. vetoed. The governor has already signed ments, a crowd would form and follow May 2007. “I began this work and I will Health Officer family twice. They thought evil spirits possessed my cousin),” said Minalang. As he pre- the proposal approving it. The congres- her. This also happened when she vis- continue to be an advocate of Bridg- Lanao del Sur, sional representative in her area even ited locations outside her municipal- ing Leadership to the local government He was in sixth grade when his baby dicted, the traditional treatment was ARMM-Department of Health gave her a call in order to make her agree. ity. She disliked traveling with armed units by building a new world and a new brother died of tetanus infection. As of no success. His cousin died in a few However, she persuaded him to leave the bodyguards, and only kept company of history in San Isidro… . Thank you for a common practice when giving birth days. Minalang recalled, matter to her and let her handle it. unarmed men after prodding from her giving us the opportunity to address the in Lanao del Sur, his mother was as- husband. One time when she asked her need of our poor, and for allowing us to sisted by a “panday” (traditional birth “If only my brother and cousin She convened the stakeholders first staff why she was being followed around become agents of change.” attendant). A week after the baby was were seen by real doctors at the and talked about it. She maintained by people, the staff unsuccessful at turn- born, it suffered from high fever with- proper time, those would not her stance of not allowing the busi- ing them away, replied that the people in- In the future, her dream is for San Isidro out receiving medical intervention. have happened. Pero sa amin ness proposal because there have al- sisted on following her in order to protect to receive an award that will state: The nearest hospital from their home noon (But in our place then), ready seven cemeteries in San Isidro her. They said they did not want anything is in Marawi City, roughly two days on there wasn’t any doctor, or a and the 2 newly constructed ones are bad to happen to her so they took it upon “Given to the community of foot. When the family tried to bring skilled health worker at least, not even full yet. She shared that cem- themselves to ensure her safety. SAN ISIDRO for being able to his brother there for treatment, it was who was available for consulta- eteries do not bring development or contribute to the nation build- already too late. The tetanus infection tion. I can imagine those things progress; there are no production on These layers of protection provided by ing thru a SHARED VISION and had already spread through the baby’s didn’t happen only to me and my those lands, and no taxes can be col- her constituents are their way of shar- COLLABORATIVE ACTION of body. Minalang said of the incident, family. Those were common ex- lected from the dead. ing the burden for her to continue the STAKEHOLDERS that brought “Naaalala ko yun clearly. Mismong periences of pain for the people good work that she has begun. She re- about the IMPROVEMENT OF family ko nga noon walang access of Lanao del Sur.” THE QUALITY OF LIFE IN This write-up was written by Continuing the Journey called later on: “My fellowship in the Marcia Czarina Corazon Medina sa health facilities at sa doctor. Kaya Mirant Leadership Fellows Program SAN ISIDRO.” gusto ko noon pa lang makatulong na Minalang then wanted to become a with Others: Toward a under the supervision of Mr. Philip Dy and Prof. Nieves para magka-access sa health ang mga doctor, so that he could contribute Confesor of the AIM Team Energy taga-Lanao del Sur. (I can remember in improving the health system in his Center for Bridging Leadership. it clearly. Even my family did not have hometown. Later on, he took up Bach- access to health facilities and doctors. elor of Science in Medical Technology

124 125 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

in Far Eastern University-Manila, and LANAO DEL SUR Most residents still rely on traditional explained that Muslim women are not implement projects with as much a Doctor of Medicine degree in Mind- healers as part of their cultural prac- comfortable in showing their body impact as desired. In his initiatives, anao State University, Iligan City. Af- Capital Marawi City tice, which was partly responsible for only to their husband, as prescribed Minalang involved health workers, ter Minalang finished medical school, Population (2007) 1.14 M the death of Minalang’s brother and in Muslim faith. Most of the panday local government units, people’s or- he became a resident physician at a are women, so it is of no consequence ganizations, and the traditional heal- Human Development Index (2006) 0.45 (73rd in the country) cousin. Minalang said that without hospital in Marawi City in 1996. From awareness of available health services, when the panday stays at the home of ers as well. His core group consisted there, he took up a specialization so Poverty Incidence (2006) 52.5% (6th in the country) people associate even the slightest of the sick and attend to them while giv- of his immediate staff in the IPHO that he can earn more as a doctor. Doctor-Patient Ratio (2008) 1:34,501 (Ideal: 1:10,000) sicknesses such as fever to bad spirits ing birth, for instance, accompanied and the municipal health officers. Addressing the practice is complicat- by the husband of the patient. His core group played a support role Infant Mortality Rate (2008) 3.48 per thousand births However, he said, “Pero ilan lang ba ed, Minalang said, “Sasabihin naman for Minalang while he reached out to ang problems na maayos ng isang ng mga healers, ‘Bakit mo sasabihing Minalang saw a mismatch between groups who can understand and own doctor? Ilan lang ba ang mati-treat ng mali ito eh ganito namin pinagaling supply and demand. There was a sup- the health issue with him. isang doctor? Konti lang. Sistema ang as head executive assistant from 2002- of centralized health plans—blind to ang tatay mo, ang lolo mo, ang mga ply of programs from the government, kailangang baguhin para lahat matu- 2005. Since 2005, he is serving as pro- the contextual realities in these com- lolo ng lolo mo?’ (The healers would but there was very low demand from In September 2006, he implement- lungan. (But how many problems can vincial health officer of the Integrated munities that are crucial in the effec- say, ‘Why are you saying that this is people to avail of the programs. He ed the “Knock-Out Tigdas” project, one doctor address? How many can Provincial Health Officer (IPHO) of tiveness of their execution. Minalang wrong when this was what we used observed the pervasiveness of “fatal- which gave anti-measles vaccines to at one doctor treat? Just a few. It is the Lanao del Sur and the ARMM-DOH. said, to cure your father, your grandfather, ism” where people think being sick is least 95% of all children aged 1-5 years system that needs to be changed so and those who came before them?’) a matter of destiny. He said, “While old in the province. “It was a huge task everyone can be helped.)” “Kapag ibinababa lang ang pro- And they are supported by most peo- I fervently believe in the Islam faith, considering that we had to cover 39 Context and Divide grams from the central [govern- ple out of habit.” I also believe that you can do some- municipalities with more than 200,000 Minalang decided to become a pub- ment] (When programs from the thing to change destiny. And that is targeted children,” Minalang described. lic servant to address the issue of Lanao del Sur is one of the provinces central government are simply Minalang explained that poverty and consistent with what the Qu’ran says.” In doing so, he had to devise innovative health. Public service was not new to of the Autonomous Region of Muslim enforced in the ground level), traditional interpretations of Islamic ways to address the lack of work force him because his father used to work Mindanao (ARMM). It has 39 munici- sometimes it does not really fit values have contributed to the preva- Minalang’s awareness of the dynamic and resources, as well as the difficulty as development management officer palities and 1,158 barangays. In 2006, the values and lifestyles of the lence of traditional healing in the relationship between structure (in of reaching far-flung barangays2. in the Office of Muslim Affairs. He Lanao del Sur ranked 6th of the poorest people. They don’t easily accept province. This awareness has helped terms of interventions) and culture described his father as a “very dedi- provinces in the country, and 73rd in the the programs if they are not him address the problem as IPHO. enabled him to initiate programs that Minalang tapped chief executives at cated public servant” even if he was, country in terms of Human Develop- tailor-fitted to them. That’s why Traditional healers receive no pay- were well received by the people of the provincial and municipal levels for “simpleng empleyado lamang (not a ment Index. (See Table: Lanao del Sur1). the challenge is to make the pro- ment for their services and attend to Lanao del Sur. He said, “I understand support. At first, he said, it was difficult high-ranking employee)” and influ- grams sensitive to their cultural the sick with “tender loving care,” as that the programs before were done in to ask for commitments from the lo- enced him to have a positive work at- “Nakita ko na noong naging provincial values while at the same time Minalang described. They sometimes good intentions, but the management cal chief executives because, “Health titude and be enthusiastic in serving health officer ako (When I became the [to slowly educate] the people even cook for the sick, and wait on and the execution needed improve- is always an intangible investment in others. These characteristics, he said, provincial health officer), the problems to make them more accepting of them all night in their own homes. ment. It’s a case of a weak health ser- their eyes. It’s not like building roads or helped his father to be regarded highly that I saw as a child were the same the programs.” On this problem, Minalang said, “It’s vice delivery system.” other infrastructure where they can put in their community. To prepare for his ones in front of me,” Minalang said. not easy to solve that, kasi (because) their names and show the people that He cited that implementation of re- long-term commitment to serve, Mi- Although there were health centers, fa- it asks that we solve the deep problem Knock-Out Tigdas they have projects. It’s part of the politi- nalang took up a Master’s degree in cilities were lacking, and there was in- productive health programs in Lanao of poverty. What we did was to try cal reality.” Aside from this, Minalang ampaign Public Health from the University of sufficient number of doctors. The work del Sur. It was difficult to apply -be to provide free medical assistance to C observed that there was still a negative the Philippines-Manila, which he fin- force and budget was not enough. cause residents equate it with a spe- those in need, but it solves temporary impression on projects coming from Minalang observed that, aside from ished in 2001. cific method (i.e., vasectomy), which problems.” the national government. “Nandoon pa being not culturally sensitive, the Minalang saw the divide as both sys- is against their Islamic beliefs. Minal- rin yung (There is still the) impression DOH had been the only mover in im- Minalang served under the Regional temic and cultural in nature. He ob- ang said that awareness then should Moreover, Minalang said, people are na (that) whatever comes from nation- plementing projects in the area. This Health Office of ARMM-DOH first as served that most of the health pro- be raised about the other methods of reluctant to show their bodies to the al government is anti-Mindanao, anti was because DOH had limited work- chief designate in 1996 and 1999, and grams enacted were merely adaptation family planning that will not compro- doctors (or the nurses in the hospi- our religion,” he said. ers and resources, and therefore could mise people’s faith. tal), especially women patients. He

1 Sources: National Statistical Coordination Board; “Doctor-patient ratio” and “infant mortality rate” from “Summary of Baseline Study Results” of the 2 Villages. Technical Assistance to the Mindanao Health Sector Policy Support Programme. The ideal doctor-patient ratio is set by the national DOH.

126 127 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

Minalang explained to the local chief can use the same “tender loving care” far as the experience with the “Knock- was used to very lenient working con- to them, show them the advan- Commitment-building with executives how good health could in- to patients while practicing a “more out Tigdas” is concerned, it “does not ditions. The core group members tages of the changes in working crease productivity and decrease the modern” health program, as Minal- necessarily address the problems in stakeholders acknowledged this as they recalled style, and then the impact of outbreaks of diseases in the locality. ang described. The program was in- the long term.” “recycling” reports before Minalang them). Example if they keep on Although health can be intangible as troduced to the traditional healers In pursuing the “Fourmula One for became their superior–“changing the recycling reports, the regional a project, its benefits translate to con- through seminars to help them under- This realization was one of the reasons Health” program, Minalang needed date” of reports and submitting them DOH will reflect that statistics. crete indicators, as healthy people are stand that health services are not nec- that urged Minalang to apply in the to establish relationships and gather as new ones. They said, “Hindi pwede The national DOH and the gov- “more productive”. According to Mi- essarily challenging their position in Bridging Leadership Fellows Program commitments from potential part- yung ganon kay IPHO [Minalang]. ernment will use the statistics to nalang, some of the local chief execu- the community. “Instead, we can work (BLFP) of the AIM-Team Energy ners. His core group consisted of his Nakikita nya at tinatanong sa amin represent ARMM and the Philip- tives adjusted policies in their munici- together. There are points na hindi na Center for Bridging Societal Divides. same staff from the IPHO, and Mi- kung bakit ganon ang mga report… pines. I helped them understand palities to accommodate the program, traditional medicine ang ginagamit, nalang considered this practical, since . So siyempre we had to change our that even the smallest things they his staff served the same office perma- while others promoted the program especially sa cases ng possible out- Fourmula One for Health ways. (That cannot be the case with do go a long way.” to their constituents. Financial sup- breaks (There are points that require nently. They are knowledgeable of the Dr. Minalang. He sees the discrepan- port was also given, even at the level more than just the intervention of tra- health conditions and existing pro- cies and asks us why the reports are as The members of the core group talk Minalang started his fellowship under grams in Lanao del Sur. of volunteer support, such as snacks ditional healers, especially in cases of the BL program3 in 2008. In the early such. So of course we had to change about the constant challenge of work- and transportation. possible outbreaks),” he said. Minal- workshops and mentoring sessions, he our ways.)” ing with Minalang, as he urged them ang observed it was easier to approach Although Minalang had a stable core to always, “think out of the box.” They identified a crucial learning that defined group he had been working with from He also mobilized volunteer health and encourage people to participate his leadership journey. Minalang said, Minalang described his journey with expressed difficulty in doing this -be workers through the cooperation of in the vaccination program when tra- his previous projects, he realized that his core group as one of “pakiramda- cause they have been used to working “Leadership is not based on position, members of his core group, as he de- people’s organizations in the locality. ditional healers in the communities but on influence and relationships.” In man (sensing)”. He said, under superiors who, “were very lax The volunteers conducted the health were involved. scribed, “should also own the issue as on dealing with our deliverables”. They order to change institutional dynam- much as I do. We cannot achieve our education component of the program ics, he improved on his leadership capi- “Noong nagsimula ako, even also said, “Maybe hindi lang kami ta- through community visits and door- Minalang looked back at the project goals if we don’t have the same vision.” when we were working on our laga kasing galing ni IPHO (Maybe we tal through building partnerships and He considered this as one of his per- to-door campaigns. and said, “The coordination work did commitments from partner groups. earlier projects, pinapakiram- are just not as good as IPHO [MInal- pay off as we were able to surpass the sonal challenges as a bridging leader. daman ko sila (When I started, ang].” They appreciate the BL frame- In the beginning, Minalang observed target by getting more than 97% that He adopted the “Fourmula One for even when we were working on work and Minalang’s strategy of chal- that families with educated members made our province one of the top per- Minalang met with his core group in our earlier projects, I was sensi- lenging them to constantly improve, Health”, the implementation frame- February 2009 to discuss the BL frame- were the first ones to avail of vacci- formers nationwide in that campaign.” work of the national DOH for health tive with them). Hindi naman but they also note that, “Sana ma-BL nation. “It helps that someone in the His stint as IPHO and his performance work and to work on their vision and pwedeng biglain ko lang sila (I din kami, para maintindihan namin sector reforms in the Philippines cov- mission. They used the Provincial In- family can explain that vaccination in the “Knock-Out Tigdas” project ering 2005-2010. It is designed to im- cannot just force them to change kung paano sya nag-iisip. Siguro pag is really helpful. Maganda (It’s good) earned him the “Outstanding Provin- vestment Plan for Health to determine immediately) and say [that] what nakapag-BL din kami na katulad nya, plement “critical health interventions their Annual Operational Plan, which that it comes from them,” Minalang cial Health Officer” award given by as a single package, backed by effec- they’re doing is not produc- kaya na rin naming mag-think out of said. However, he knew that they the Philippine Media Association in they would revisit twice a year for as- tive… . They have been used to the box palagi (We hope we can also tive management, infrastructure, and sessment. Their meetings included six would not be able to reach their tar- June 2006, and the “Outstanding Pub- financing arrangements.”4 Driven by it, so I need to work with their be taught of BL, so we can understand gets if they would rely on this alone. lic Servant” award given by Mindanao district health officers, who in turn, pace, then saka i-introduce yung how he thinks. Maybe if we do BL like what he learned from his experience have their respective teams. The struc- They had to find a way to reach more Inquirer in May 2008. as IPHO and the “Knock-Out Tigdas” bagong style (that’s when I in- him, we can also think out of the box people at a faster rate. ture allowed them to have a multiplier troduce the new style). It was a constantly).” program, Minalang campaigned for effect on the activities. Despite the success of the program, the adoption of a “life cycle approach” process that we went through… Consequently, Minalang tapped the Minalang was reminded of the un- Kinakausap ko sila, pinapakita The core group members, however, in health. This means, from the mo- However, the transition that his core traditional healers as well since they derlying root of the outbreaks and ment an individual is conceived, to ko yung advantages ng mga appreciated the working style of Mi- have the most established network in the health crises in the province: the group went through did not go easily. changes sa working style, and nalang especially because their contri- his childhood, and until old age, the Minalang observed that the core group the villages. The presence of tradition- weak health service delivery system. health system should be able to suffi- then the impact of them. (I talk butions to the planning and execution al healers also appealed to the people’s Although active collaboration among ciently and efficiently provide for him culture and perceptions because they groups can produce excellent results as services. 4 The overview of the program is discussed in the Department of Health website (www.doh.gov.ph). Fourmula One for Health is described as: “[It] engages the entire health sector, including the public and private sectors, national agencies and local government units, external development agencies, and civil society to get involved in the implementation of health reforms. It is an invitation to join the collective race against fragmentation of the health system of the country against the 3 The program covers a one-and-a-half-year of intensive training, mentoring, and application geared towards increasing the capacity of selected leaders inequity of healthcare and the impoverishing effects of ill-health… . Fourmula One for Health is aimed at achieving critical reforms with speed, prevision, and effective to address their selected societal divide. Fellows learn to improve their ability to identify and understand a problem and its complexity, and develop a collaborative coordination directed at improving the quality, efficiency, effectiveness, and equity of the Philippine health system in a manner that is felt and appreciated by Filipinos, response to address the problems. The selected leaders are then able to induce change within the context of their involvement. especially the poor.”

128 129 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

were given more importance unlike “A Health Summit was conducted But the summit’s most successful out- ers and encouraging the district hos- The Balindong hospital staff and per- given to “Employees of the Month” and the set-up before. One of them nar- with technical support from SHIELD, come, according to Minalang, were the pitals and rural health units to con- sonnel underwent a one-week team- other top performers who were able to rated, “Dati kasi directive lang, ito TBLINC, Health Promotion and Com- commitments offered by the groups. duct monthly meetings as well. They building activity in Cagayan de Oro deliver targets. Minalang explained, gagawin, ganito gagawin. Dati medyo munication (HealthPro) and Private The renewed awareness of the inter- also set up review systems for pro- in October 2009, through the assis- ganoon din si IPHO, pero sa pag-B- Sector Mobilization for Family Health locking problems on health has ena- gram implementations. According to tance of USAID’s Sustainable Health “It allows us to reinforce positive work, BL nya, ngayon nag-de-delegate na (PRISM) Projects. The summit was bled the groups to have a joint vision. the core group, this has not been done Improvement through Empowerment and it encourages the others to work sya. Syempre ako, I feel important participated in by key stakeholders prior to Minalang’s efforts. Previously, and Local Development (SHIELD) better kasi sino ba naman ang ayaw kasi may nagagawa talaga ako. (Pre- headed by the Secretary of Health of He said, “Na-move sila… . They un- meetings were irregularly scheduled, project. The activity produced a list magka-award (because who doesn’t vious IPHO officers were directive DOH-ARMM, the Provincial Gover- derstood na hindi lang kami sa DOH and there was not enough dialogue to of recommendations for health gov- want to receive an award) in front of only; ‘this is what we do; this is how nor of Lanao del Sur, the Sangguniang ang makagagawa nito… . At dahil tackle pressing issues as perceived by ernance and operating procedures many others in the conventions. Of we do it’. Before [Minalang] was also Panlalawigan Chairperson for Health, doon….hindi na kami nahihirapan stakeholders on the ground. agreed-upon by the attendees. The last course there is competition involved a bit like that, but with the BL, he now seven Municipal Mayors, the 30 Mu- mag-explain sa mga politicians or sa quarter of 2009 served as the adjust- among them, but [it is a healthy delegates work. On my part, I feel im- nicipal Health Officers and their staff, mga tao dahil may kasama na kami This also included a monitoring sys- ment period for the personnel and one]… .It also enables us to do more portant because I really have a part in and the technical staff of the Provin- in the campaign. (They were moved. tem for personnel and records. Ac- staff of Balindong. The plan was fully work without increasing the payments what we do.)” cial Health Office. The Health Summit They understood that we in the DOH cording to Minalang, “Reviewing re- implemented in January 2010. of the personnel, because now they do showcased the best practices being im- are not the only ones who can do this… cords is very important because they the work because they are motivated.” One core group member added, “Pa- plemented in Lanao del Sur, such as the . And because of that… we didn’t find go to as far as the national levels.” Be- Included in the new arrangements are rang aware sya at ni-re-remind nya ang USAID supported Community Health it hard to explain to the politicians or cause he observed that hospital and transparent systems in hospital trans- Meanwhile, another aspect of health kanyang sarili na i-consider kami palagi Action Team’s contribution in increas- the people because we already had health unit personnel did not take re- actions. Dalidig said that priority was governance was setting up effective (He is aware and it seems he constantly ing the coverage of Vitamin A supple- partners in the campaign.)” cord keeping seriously before, special also given to disbursement of allow- information systems, which included reminds himself to consider us [in the mentation and other health services on attention had to be given to it. ances and benefits of the hospital staff surveillance and scanning of health processes and decision-making].) Maternal and Child Health Programs. When the preliminary commitments and personnel. They also created a sup- indicators. In this regard, province- The local chief executives spearheaded were established, Minalang, his core There was also a case when Minalang ply officer position, which is in charge wide trainings for rural and munici- But given the sentiment on the pace of by the Provincial Governor expressed group, and all the stakeholders pro- facilitated the transition of the chief of of checking hospital procurement. pal health workers were conducted work, Minalang looked forward to hav- support and committed to contribute ceeded in working on the different hospital of Balindong Rural Municipal to allow them to use the software for ing the core group attend more BL ses- by increasing the share of the Provin- components of the “Fourmula One for Hospital. He narrated that the former As a result, the working attitude of the encoding data that were acquired in sions, aside from those already undertak- cial Health Office on the capitation Health”: Health Governance, Health Chief of Hospital did not report to the personnel and staff has significantly the last quarter of 2009. Computeriza- en. One of which is the Health Summit fund from PhilHealth.”5 Service Delivery, Health Regulation, hospital regularly, which set a prec- changed. They are now reporting to tion addressed the delay in reporting, conducted on March 10-11, 2009 with and Health Financing. edent for the staff and personnel. The work regularly at the proper office inconsistencies, and unvalidated data the theme “Moving towards a Healthy Minalang saw through the sharing of staff and personnel confirmed this, hours and have become more involved that earlier existed in the province. and Peaceful Lanao del Sur through the summit attendees that the health Health Governance and said that transactions were not in the DOH programs in the different Collaboration, Convergence, and Inno- problem is “multi-factorial in nature”. transparent, which became grounds barangays, aside from their duties in However, according to the core group vation”. During the summit, local gov- Although providing facilities and The national directive on health gov- for cases to be filed against the former the hospital itself. members, there are still difficulties ernment heads, health workers from ba- equipment is a good way of address- ernance sought to improve health chief of hospital. However, the cases they faced in data collection. First, rangays (villages) to the provincial levels, ing the key concerns, one group alone systems performance through intro- were not sufficiently responded to. In Similar strategies were implemented in they estimated that around PhP 1 mil- members of the academe, Muslim reli- cannot accomplish it. For instance, ducing interventions in governance mid-1990s, the chief of hospitals be- other municipalities in the province. lion has to be spent for reproduction gious leaders, traditional healers, and de- improving a health center does not of local health systems, coordination came sick, and Minalang took the op- Minalang initiated re-planning ac- of survey forms that are to be repro- velopment partner donors raised issues necessarily mean that people will au- across local health systems, private- portunity to convince him to resign tivities, workload distribution mecha- duced and updated regularly. Second, and concerns all directed towards im- tomatically go there for health servic- public partnership, and national ca- from the post. nisms, and formal job descriptions they are working with limited work proving the existing health system. The es, especially when there are no decent pacities to manage the health sector. guidelines to facilitate the accomplish- force, as some barangays only have a core group said that this was when they roads they can use. Minalang said, “If Minalang then proceeded with evalu- ment of the deliverables of the staff and few volunteers to get all the data from “really saw what a BL approach can do,” we really want to improve the system, For this component, Minalang and his ating and screening potential candi- personnel. They were also subjected to the entire village population regularly. for it was the first time that such scale of the collaboration would have to be team improved the management sys- dates for the vacant post and eventu- output-based evaluations. In the meantime, they mobilize peo- consultation and sharing has been done taken to another level because we can’t tem by conducting regular meetings ally awarded the post to a rural health ple from other municipalities to assist in the province. As USAID reported, leave these concerns out.” with the district and municipal offic- physician from Tugaya. Dr. Asnawi Furthermore, Minalang and the team in the data collection. Dalidig is now the chief of hospital in installed several recognition and re- Balindong, and has accomplished sig- wards system to encourage better per- Health Service Delivery 5 Lifted from “USAID Activities in Lanao del Sur and Marawi City, as of March 2009)” Provincial Briefers, link at http://philippines.usaid.gov/map_la- nificant changes in collaboration with formance of personnel. During meet- nao_ds_3.html. Minalang. ings and conventions, plaques were The interventions on health service

130 131 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

delivery were to improve the accessi- not know what services are provided . Sabi din nila mukha raw akong bata However, all local chief executives did quality essential medicines commonly common medicines purchased by the bility and availability of basic and es- by hospitals, hence producing a low dahil hindi na ako mapayat. (I tell not always guarantee active support used by the poor. people are those for fever, infections, sential healthcare, covering all public turnout on health projects. them that since I used family plan- for health programs. On this matter, and diarrhea. and private facilities and services. It ning, I no longer get sick… . Then I Minalang tried to provide support to For Lanao del Sur, Minalang and the ensured the availability of provid- Moreover, people hesitated availing also have time for myself… . They tell the volunteers through other means. team focused on two main programs: The operators also cited instances that ers of health services in localities, of these programs because of miscon- me I look young because I am not as For instance, refrigerators were allo- (a) building of Botika ng Barangay their fellow villagers would knock on designated providers of specific and ceptions. For example, mothers did thin as I was before.)” cated to rural health centers to prop- units, and (b) accreditation of health their doors in the middle of the night specialized services in localities, and not want to have their children vac- erly store vaccines and other medi- facilities. in order to make purchases. They intensified public health programs in cinated because, “nagkakalagnat ang As a result, more people from the cines. He said of this, “Volunteers sometimes feel, they said, that they are targeted localities. mga anak namin dahil dyan (our chil- barangays actively go to rural health recognize naman even the smallest Botika ng Barangay (BnB) units were “like doctors” as well, for being on-call dren get fever because of that).” They units and hospitals to get medical efforts you do in order to assist them installed in key areas of the province any time of the day. The operators said Reaching far-flung barangays re- were also hesitant about family plan- services or to volunteer in the pro- with their work… . Kailangan mo ring to provide quality but low-cost medi- they felt the difference that the BnBs quired strong relationships and com- ning, because they think all methods grams themselves. There has better magbigay ng something tangible (You cines to the poor. Initially, Minal- created in their communities. “Wala mitments from stakeholders coming were going against Islamic faith. organization on the ground for health also have to be able to give something ang and his team aimed to instate 20 nang gaanong nagkakasakit nang from the barangays themselves. One programs, and information dissemi- tangible).” units, but as of September 2009, 30 matagal... . Hindi na kami gaanong of which is a group of volunteers, the The BHWs and CHAT volunteers em- nation is nearly self-sustaining, us- units have already been put into place. nag-aalala na hindi matugunan yung Barangay Health Workers (BHWs) or- ploy education campaigns through ing “word-of-mouth” as the strongest Continuous capacity building must “Mas accessible ang mga botikang ito mga nagkakasakit kahit gabi… . Saka ganized as part of the DOH program in formal sessions in barangays, or campaign mechanism. also be conducted for the volunteers (These pharmacies are more accessi- iba yung nakakatulong talaga kami sa the late 1990s. Under Minalang’s lead- through what they call “tumpukan”. In as their number increased over time. ble) in terms of distance and time, so mga kasama namin. (There are very ership, groups called the Community the tumpukan, the volunteers infor- In these activities, operational support In 2007, Minalang was able to acquire [those in need] don’t have to go very few people who get sick for a long Health Action Teams (CHATs) were mally chat with mothers during their must be provided. The volunteers, as financial support for trainings of the far just to be able to get sometimes time… . We are also no longer worried organized in every barangay, through everyday activities like doing the laun- their involvement suggests, are un- then-newly established CHAT groups even the most basic of medicines,” that people who get sick on the middle the support of the USAID-SHIELD dry and discuss the health programs paid, but as much as possible, Mi- from the UN Population Fund. He Minalang said. of the night cannot be attended to… project. Each village CHAT group was with them. Barangay officials attend nalang said, the IPHO would like to also recently garnered pledges from . And the feeling is different knowing composed of BHWs in that area, staff sessions in the villages and encour- find ways to provide allowances and USAID for capacity-building support. Part of the installation of the BnBs is that we are helping our co-villagers.)” from the rural health units, mothers, age people to go to health units and answer for their transportation costs. the training of the operators in order fathers, traditional healers, barangay hospitals for medical services. Tradi- Since the provincial DOH worked The awareness campaign has achieved to sustain the operations of each unit. Minalang also aimed that the hospi- officials, and Muslim religious leaders. tional healers are also involved in the with a limited resource, Minalang significant results. For instance, the Each BnB originally has PhP 25,000 tals and local health units be accred- Most of the CHAT volunteers have campaigns–a model borrowed from constantly tried to gain the support of ARMM-DOH reported that vaccina- worth of medicines provided by the ited under the DOH standards to en- been working with Minalang since his “Knock-Out Tigdas” program. the local chief executives to augment tions against dengue and information national DOH. Support has also been sure the quality of the care and service “Knock-Out Tigdas” program prior to the costs of volunteer work. dissemination about its preventive acquired from the UN Population provided. When a facility is accred- his BL Fellowship. In the case of reproductive health pro- measures have decreased the number Fund setting up the BnB units. The ited, it would have license to operate grams, Muslim religious leaders from Fortunately, in some areas such as in of dengue cases in Lanao del Sur from funds for the BnBs were part of the and build infrastructure. The team has As of September 2009, more than the barangays engaged people in dia- Ragayan and Wao, the local chief ex- 137 cases in 2007 to 24 in 2008.6 grant that Minalang was able to secure initially targeted 10 rural health units 50% of the 39 municipalities have logues to clarify that certain methods ecutives supported the health program. for Lanao del Sur. (RHUs) accredited, and met this goal functional health teams, the model of (i.e., natural calendar method, pills, In Ragayan, the current mayor is the Health Regulation before September 2009. Minalang said which Minalang aims to be replicable condoms) are consistent with the Is- former ARMM-DOH Secretary Lam- BnB operators from barangays Mun- they would venture building more for the other municipalities and prov- lamic faith in providing the best pos- pa Pandi; Minalang said he didn’t have The health regulation component of tian and Rogero said that the phar- RHUs. inces in Mindanao. sible quality of life for every person. to make so much effort to convince the “Fourmula One for Health” sought macies benefit the people not only in him to own the health issue. According to assure access to quality and afforda- terms of accessibility, but also through Accreditation requires investment on The BHWs and CHAT volunteers In Bubong, a group of women organ- to the Ragayan municipal health of- ble health products, devices, facilities, the provision of cheaper medicines. facilities and equipment. For this, Mi- served as the ground-force of the DOH ized themselves to serve as “models” ficer and volunteers, Pandi constantly and services through harmonizing The pharmacies also serve as a busi- nalang tapped stakeholders for sup- programs such as free vaccination and of the reproductive health campaign. provided financial support for the op- licensing, accreditation and certifica- ness for the operators as they receive a port. For instance, the Ragayan Ru- medical missions, reproductive health They refer to themselves as “satis- erations of the BHWs and CHAT. For tion, issuance of quality seals, and as- percentage of the pharmacy’s income. ral Health Unit was a UN Population campaigns, and general awareness fied users”. According to one of these the municipality of Wao, the mayor suring the availability of low-priced According to the operators, the most Fund beneficiary for the acquisition of campaigns on available health servic- models, “Sinasabi ko sa kanila simula allocated funds for health services, fa- es in rural health units and municipal noong nag-family planning kami, cilitated and endorsed PhilHealth en- hospitals. According to the volunteers, hindi na ako nagkakasakit… . Tapos rollment for indigents, and augmented prior to their involvement, people did may oras na ako para sa aking sarili… labor in health activities. 6 From “State of the Regional Health Address” by ARMM-DOH Sec. Tahir Sulaik, delivered July 2009.

132 133 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories beds and other equipment. Moreover, the unit was also recently given a fe- ARMM PhilHealth Enrollment (households) Ang [insight] talaga sa amin these through his learning and in- them. He has done this before with tal Doppler (used to listen to the fe- (The insight for us really) is that sights from the BL workshops. Minal- some mayors by personally approach- tus’ heartbeat), which they use in the Lanao del Sur 63,576 we have to go back to where the ang said, ing them, identifying the health chal- medical missions in the barangays. Maguindanao 13,826 people are. We have to know lenges in their area and coming up with In 2010, Ragayan Rural Health Unit what they want. We should un- “I learned to take risks, to be more solutions with them. After establishing officer, Dr. Dianarah Disomangcop Tawi-Tawi 5,500 derstand what they think and confident in my leadership. I have a relationship with stakeholders at a looked forward to receiving a new- Basilan 1,742 feel are important to them.” become more engaging, responsive, personal level, Minalang invited the born screening kit from the national and innovative in my leadership… . I mayors to the health summit where DOH. Although Minalang was exhibiting have started and continued to create they seal commitments. He said he some form of multi-stakeholder ap- better relationships and more realis- would employ the same strategy in According to Disomangcop, the pres- sidies to priority programs, adopting a lation Fund-AusAID, a PhP 29 million proach during the “Knock-Out Tig- tic and effective institutional arrange- getting more local chief executives on ence of the equipment “impresses” the performance-based financing system, grant from the European Commission das” project, the involvement of the ment within the organization that I board, especially in view of the planned people who come to the health unit and expanding the national health in- and continuing support from the US- other groups were at the implement- lead. This conscious transformation I BL Workshop for Mayors in early 2010. for services, surance program. AID. Some of these donors have been ing stage. He said that his leadership believe contributes and will certainly working in Lanao del Sur for many style then was “more aggressive” in facilitate effective execution of our Aside from this, Minalang also encour- “Nakikita nila na hindi mukhang pam- From the health summit, Minalang years, and Minalang re-engaged them nature. “Noon ako lang ang nag-iisip. plan and sustainability of our efforts. aged his team and Municipal Health probinsya yung health unit namin. encouraged local government heads by showing the concrete outcomes of Ako lang mostly nasusunod. Siguro Based on the VMOKRAPI8 that we Officers (MHOs) to directly engage lo- Syempre natutuwa silang bumalik to enroll 80% of their constituents to earlier interventions in the health sys- dahil na rin fresh ako noon from my have formulated, I am already seeing cal chief executives. He said that some dito… Kapag dinadala naman namin Social Health Insurance program, by tem. Minalang’s core group also said Master’s degree in Manila, kaya may the attainment of targets and hopeful- MHOs already have good working rela- yung Doppler sa mga barangay, naku paying for premium for PhilHealth that he is always on the lookout for kaunting yabang (Before I was the only ly in due time, we can achieve our set tionships with municipal mayors, hence tuwang-tuwa yung mga mothers. Mas accounts. Minalang said that the prob- possible grants, both local and inter- one who made decisions. I was the goals and objectives. I am seeing more convincing the mayors to co-own the nagiging excited sila na magpa-check- lem is not with the employed, since the national. one followed. Perhaps it was because I support and participation from the health issue would be easier if the MHOs up at kumuha ng mga vitamins. (The law mandates that employers facilitate was a fresh graduate from my Master’s local government units, development would talk to them. He said, “It’s easy to people see that our health unit doesn’t the PhilHealth application of all their The impact of the collaborative efforts degree in Manila, which made me act partners, donors, religious and other identify the problems, pero mas mahi- look like the usual ones. They become regular employees. The challenge lies is reflected in Lanao del Sur’s statis- with pride),” he said. But through the sectors, and the community people rap yung sino gagawa, paano gagawin… eager to come back here… When we in assuring that the unemployed sec- tics. In a DOH regional report on the BL framework, he became more aware themselves.” (but the greater challenge is identifying bring the Doppler to the village, moth- tor could be enrolled as well. “Fourmula One for Health”, Lanao of his actions and decisions and kept who will address the problems and how ers are enthusiastic about [listening to del Sur is the leading province in the himself in touch with the people’s per- Such support from local government it will be done). And in this case you their fetus’ heartbeat]. They become While Minalang is able to convince region in terms of PhilHealth enroll- ception of situations. units became the key element in se- have to empower your subordinates, like more excited to have check-ups and to several municipal executives to in- ment (See Table: ARMM PhilHealth curing the sustainability of the pro- the municipal health officers… . There 7 get supplements.)” troduce an Indigency Program with Enrollment ). Being a native of and educated in La- grams that Minalang and the stake- are instances that they are more likely PhilHealth in their areas, the core nao del Sur helped Minalang establish holders have worked on. Municipal to be listened to by the mayors, so yun Minalang and the health officers con- group said that there is still a need to Meanwhile, meetings are held with leadership capital. When he assumed mayors exhibited different levels of ang strategy na gagamitin dapat (so that tinue their efforts to have more hospi- improve further health facilities and PhilHealth officers in the province to the position of PHO, he realized that support for the health program, and should be the strategy used).” tals accredited in 2010. have more hospitals accredited under intensify their marketing strategies position and descent of locality were this directly affected outcomes. The the PhilHealth standards to maximize with the local chief executives, and not enough to develop collaborative areas in which health service deliv- Ultimately, Minalang said, the commit- the capitation spent by the local gov- assist in the enrollment of more indi- efforts with partners. The quality of ery and volunteer activities have been ment of the stakeholders can be achieved Health Financing ernment. This leads back to the re- gents. relationships built with these groups most effective were those are actively when the community exerts pressure to source limitation on health spending The health financing component of contributed to his leadership capital. supported by mayors. demand delivery of health services. “The for the province. the “Fourmula One for Health” aimed Challenges and Insights He said talking to stakeholders and demand will exist when the community to secure better and sustained invest- then linking them together allowed Given his experience Minalang be- owns the issue… . And they can only ex- For this, Minalang tapped external ments in health through mobilizing “The BL framework taught me him to gain their trust, and that trust lieves that the most effective way of ert pressure if they are organized. Kaya stakeholders to capitalize on health resources from extra budgetary sourc- how to be more analytical and is “one of the most important things securing support from stakeholders is kami may (That is why we have) com- spending. His resource mobilization es, coordinating local and national more disciplined in observing in leadership”. He was able to realize through sharing the health vision with munity organizing efforts through the efforts was able to secure a seven-year health spending, focusing direct sub- the multi-stakeholder approach. program support from the UN Popu-

8 VMOKRAPI is an acronym for Vision, Mission, Objectives, Key Result Areas, and Performance Indicators. This is one of the tools used by the Fellows 7 From “State of the Regional Health Address” by ARMM-DOH Sec. Tahir Sulaik, delivered July 2009. under the BL program.

134 135 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

volunteers,” he said. Minalang hopes that Minalang said they must be shared to nagagawa (The more we accomplish the community, through their people’s all the stakeholders. Such gestures rein- things), the more na may demand for organizations, can later on approach the force the commitment of partners and more. It’s a constant realization that we are mayors and show them that health is a stakeholders, that tangible results can far from the ideal. But even if we haven’t Conclusion very important issue for the people. be seen after their collaborative efforts. reached our ideal targets, I don’t find it frustrating… . At least may (there is) im- And when small victories are achieved, provement… . It’s very encouraging.” But Minalang noted, “The more na may YEAR AFTER YEAR, STATISTICS CAPTURE THE INEQUITY that characterizes much of the world. Despite the number of initiatives to address them, Human Development Indicators (HDI)1 continue to show marked differences in the quality of lives of people across the world. Given the enormity of the challenge at hand, nations clearly need bridging leaders who can rally their people toward closing these gaps.

In the past four years, the Asian Insti- ship Fellows program helped in the sues. The process of building bridging tute of Management, with the support attainment of social outcomes? How leaders imbues them with newfound of Team Energy, has endeavored to has it created and enabled leaders to strengths and provides important les- develop leaders who will embrace the reduce disparity in the lives of people sons that will serve them well in deal- task of eliminating pervasive societal around the world, so that a child born ing with existing and emerging issues divides through the Bridging Leader- in Tawi-Tawi may at least enjoy the on the ground. ship Fellowship Program. same living standards as a child born in Thailand? A unique approach The program strives to create leaders who will achieve more than just out- A journey begins The program’s strengths derived from puts—those that track what organiza- its unique approach to leadership tions and institutions have done—and Four years is a short time to eliminate building. For one, the Center was fo- aspire for societal outcomes, best seen divides that took hold and grew roots cused on seeing the Bridging Lead- in the quality of people’s lives. over decades, even centuries. Given ership framework play out in actual this, the Bridging Leadership Fellow- practice, and drove the implementa- The Bridging Leadership Fellows pro- ship Program is still very much a work tion of the fellows’ programs. It was gram aims to mold men and women in progress. It does not claim to have part of the fellows’ leadership journey who can transcend the gap from be- reduced societal divides; its greatest as a co-implementor, and the fellows ing a principled manager concerned impact could very well lie in its having appreciated that. with merely keeping stability through altered the way of thinking of leaders order, predictability and efficiency, to and their stakeholders, which is need- Its greater emphasis on fellowship become a true leader concerned with ed to begin the process that would instead of training differentiated the change, innovation and improvement. take years to complete. program from others. Fellows knew It aspires to create leaders who can they were among leaders they could rally stakeholders around the goals that In many ways, the program process has trust, and that clearly mattered to can transform society and take it from triggered the transformation of the fel- them and their learning process. where it is to where it has never been. lows as well as that of their stakehold- ers, an internal change which serves as The program’s generative framework How, then, has the Bridging Leader- the first step in addressing societal is- was also a strength in itself. The Bridg-

1 The Th e summary measure of human development that seeks o measure the average achievement in a country in three basic dimensions of human develop-develop- ment: a long and healthy life, knowledge, and a decent standard of living; an index of 1 signifies a perfect HDI.

136 137 Addressing Societal Divides: Stories of Bridging Leadership Fellows Stories

ing Leadership framework is a process the issues to be resolved,” said Sonia Beyond rhetoric, the program took fel- Bridging Leadership on the the communities as well. The mentor- Mayor Sonia illustrates how the Bridg- frame that required the fellows’ per- Lorenzo, former mayor of San Isidro, lows on a journey of self-discovery, ena- ing process provided fellows with the ing Leadership concept has propa- ground sonal inputs for it to work. How the Nueva Ecija. bling them to understand themselves direction and guidance to successfully gated itself outside of the fellowship. fellows used the Bridging Leadership better—a critical step that allowed them identify critical issues and collaborate Through her work, the Critical Coa- Fellows especially valued the oppor- framework came from their own anal- Growing among leaders to analyze issues better, and move on with stakeholders to address these. “It lition of San Isidro, a multisectoral ysis of societal divides as it applied to from a personal to a shared response tunity to bring their knowledge and has been very helpful. My mentor’s group of leaders representing farmers, insights to their workplace and apply their circumstances. In effect, there As a result of the rigorous selection with other stakeholders. Quiet time was sincerity to extend help is very evident. the academe, youth, women, business, these for an actual learning-in-action was co-ownership of the framework process, fellows that came into the especially prized by the fellows. They His encouragement and remarks help the religious sector, non-government experience. “I think the main strength between the Center and the fellow as program were leaders who had strug- appreciated how this allowed them me analyze the context of the plans and organization and local government of the BL Program is that we are able it applied to addressing realities on the gled with various issues and who to think things through, and how it finalize appropriate programs for the units, now advocates the Bridging to apply what we learn in our work ground. had much to share about these. At brought about important realizations target clientele,” said Dr. Lorna Dino, Leadership process to achieve collab- and at the same time we are able to the same time, they were hungry for about themselves and the needs of so- Director III at the National Educators orative action and attain a collective bring what we experience to our class- answers from others who, like them, ciety. Instead of simply getting things Academy of the Philippines. response toward a shared vision. Choosing leaders es, seminars and discussions. I think have actually experienced the day-to- done, the sessions allowed them to step this is a very effective methodology Leadership begins in the mind and day challenges of leadership under back to ask “what is going on?” and There is also a greater demand for the since we are able to easily apply in Presentation to the publics heart of a person, which is why the the same circumstances. This created “why is this important to me?” Bridging Leadership program, not real life what we learned,” said Harvey selection of Bridging Leadership Fel- an environment that fostered learn- Recognizing that ultimately, the Bridg- only among stakeholders, but also Keh, Director of the Ateneo School of lows, a highly competitive process, ing. Adrian Manahan (position here) “It was a process that brought me back ing Leadership program seeks to ad- among international development or- Government’s Youth Leadership and has always been a critical part of the noted how the fellows looked forward to my senses. It brought me to more dress the needs of the fellows’ constitu- ganizations—a symbolic recognition Social Entrepreneurship units. program. Fellows were chosen for to sharing their thoughts with one an- discernment about the inner part of encies, and that their ownership of the of the work that the fellows and the their experience and personal under- other, and the sense of safety that the myself in search for answers about who program is key to its success, fellows Center have done. Interestingly, it was shown that there standing of the issues they hoped to fellowship provided. really I am. It gave me total acceptance were expected to present their work to are usually many bridging leaders address. Most importantly, they had of myself, internalized the greatest po- them. The presentation to constituents To achieve broad outcomes, stake- in the Bridging Leadership process. to be in a position to act on these. One Gavino concurs: “The fellows found tentials I have as a leader and made me aimed to validate the fellows’ work, holder engagement is critical. Because Some of these bridging leaders may could not come without the other. strength in each other. They learned better prepared for the responsibilities elicit additional feedback, and at the outcomes cover how quality of life im- not wield any formal power or author- from each other and could comment I have to perform for the society,” said same time, enlist their support. proves for society as a whole, it cannot ity, but are able to convincingly rally “As a strategy, we did not choose peo- on what each one was doing because Lt. Col. Francis Alaurin of the AFP be achieved by one person, organiza- Command and General Staff College. people toward a cause. tion, or sector working solely on its ple who were young or who were not they knew the perspective from the Beyond the Fellowship in a direct position to deal with the ground level. Many of the fellows said own. It would need the collaboration The program also revealed that the issues on the ground. This is not to they could not speak the way they did Fellows appreciated every opportunity of different stakeholders, who should multistakeholder process is a multi- Indicative of the Bridging Leadership say that others were not worth invest- in the classroom when they were in to understand themselves better. “The embrace it as a shared responsibility, layered, multi-phased process with program’s success is how it has gained ing in, but only that we had to choose the conflict area. They shared the same genogram technique and the lessons and the Bridging Leadership fellows various aspects. Most often, build- a life of its own beyond the fellowship, those who can achieve maximum im- passion and commitment, which fur- on the healthy family system have have demonstrated this clearly. ing co-ownership was the most diffi- and how it is continuously propagated pact for the resources that we put in,” ther strengthened their commitment guided me to see my family roots and cult part of the framework, especially by the fellows themselves through their said Prof. Jacinto Gavino, one of the to the program.” In finding strength appreciate the ‘whys’ in my characters since there were political, religious work and their interaction with others. Moving forward program directors. in each other, the fellows also learned and personalities,” said Dr. Abdullah Dumama, Director IV at the Depart- and cultural realities that had to be from each other. Through their initiative, fellows have No doubt, the Bridging Leadership ment of Health Center for Health De- taken into consideration. Fellows understood the need for a developed other bridging leaders in framework has begun to play a role in velopment in Region XII. demonstrated record of commitment In fact, the program was seen to be their areas of responsibility, as they in- creating the leaders that can bring about earning from mentors in choosing prospective fellows. “I be- very heavily slated toward developing L teract with each other, within and across the change that have eluded communi- This learning journey was made richer by lieve that commitment to become a leaders and building relationships, so sectors and geographies, building and ties for so long through the processes the continuous sharing of insights with Fellows were not left on their own as bridging leader is very crucial because much so that one of its most valu- sustaining a critical mass of bridging it uses and its emphasis on these lead- peers who have gone through the same they tried to bring the Bridging Leader- we have to continue the work beyond able outcomes is the vastly improved leaders who can bring about the societal ers’ personal development. Societal out- process of personal self-discovery. This ship framework to life in their respec- our areas of responsibilities. I also relationships between the fellows and and economic outcomes that nations comes may not have been achieved yet, spirit of sharing among learning compan- tive communities. Experienced devel- think that a faith-based leadership is other stakeholders. need. This process continues each day but indicators show that the process for ions engendered a sense of community opment practitioners and experts held needed to give meaning in our work within the military and among local attaining these has started. that fellows said inspired and empowered their hands all throughout the process & will keep us going. The applicant government officials, and in oft-forgot- Personal discoveries them to do their work better. It is hoped to make the learning journey mean- should be a leader who has owned his/ ten provinces like Basilan and Sulu. Moving forward, it is useful to ask how her divide already or has identified that this sense of community would lead ingful not only to the fellows but to the process of developing bridging lead- to collaborative action in the future.

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ers—demonstrated to have changed radic or opportunistic. The fellowship ful, and more mentoring visits may be the perspectives of fellows and several program also has no sectoral or is- in order to ensure the success of the pro- others--contributes to societal outcomes. sue focus, which may have succeeded grams being undertaken by the fellows. ProductionCommittee Over the past four years, there has been in bringing the Bridging Leadership The management of transitions should evidence that the process of build- concept to more people, but which also be studied. Mentors pass implicit Editors: ing bridging leaders has brought about may have diminished impact. knowledge which is passed or learned Prof. Nieves Confesor changes that, over the course of time, can in the process. When the program ends, Prof. Jacinto Gavino, DPA lead to the decline in societal inequity. The sustainability of the Bridging there should be a way for the fellows to However, the framework’s link to impact Leadership program, as well as the go through the transition process with Marcia Czarina Corazon Medina should be established, with appropriate work started by the fellows, also de- the Center’s assistance. baselines set. At the same time, the im- serves attention. Otherwise, the mo- Contributors & Writers: pact of the relationships that the program mentum of the program will be lost. Obviously, the role that the Center will Michael Joseph Juan established is also worth analyzing. play in all this has to be established. It Most importantly, the political dimen- cannot remain as a mere teacher, but Philip Francisco Dy Clearly, more qualitative measurements of sion of leadership deserves utmost atten- rather, as a stakeholder that is equally Maria Meliza Tuba these changes are needed. The program tion. The Bridging Leadership program involved in the process of reducing in- Cecille Joyce Lao will greatly benefit from further research has worked on the assumption that good equity. to ensure its effectiveness and greater ac- leadership should be politically reward- John Ryan Recabar ceptance. Peer reviews are necessary, as ing in the belief that the electorate would Fellows could be guided in choosing Maria Ayn Jella Villanueva are research on success indicators for the vote for those leaders whose works have the divides that they will endeavor Marie Antonette Reyes program; measurements of outcomes due led to tangible changes in their lives. Yet to address, taking into consideration to the leadership development interven- some fellows who did good work failed to their competencies. tion; and its links to Filipino identity and win elections despite the good work they Book Designer: culture. Changes in relationships between have done. Clearly, the program could not Finally, systematic monitoring of all of Jed-Angelo Q. Segovia and among stakeholders may be looked ignore the political dimension and should the fellows’ works post-fellowship is also into, as improved relationships may well look at how it could parlay good leader- in order to determine if indeed, the pro- Special Thanks to: result in improved programs and eventu- ship into political capital. It is also essen- gram is achieving its objectives. This ally, better indicators. tial to identify which institutions have the could be done by a third party and could Prof. Ernesto Garilao biggest impact on the process. contribute to knowledge management. Marifi Hernandez The platform for collaborative ac- Gisella Velasco tion among the fellows should also The program process could also be Written by Prof. Jacinto Gavino and Adrian Manahan be established. For now, collaborative strengthened for better results: mentor- Marcia Czarina Corazon M. Medina, with action undertaken by fellows is spo- ing could be made to be more purpose- assistance from Marie Antonette Reyes.

This book is published by the Asian Institute of Management – TeaM Energy Center for Bridging Leadership in 2011. You may contact the office at 02-8924011 local 2123.

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