Rethinking Peace and Conflict Studies Series Editor Oliver P. Richmond University of Manchester Manchester, UK This agenda-setting series of research monographs, now more than a decade old, provides an interdisciplinary forum aimed at advancing inno- vative new agendas for approaches to, and understandings of, peace and conflict studies and International Relations. Many of the critical volumes the series has so far hosted have contributed to new avenues of analysis directly or indirectly related to the search for positive, emancipatory, and hybrid forms of peace. New perspectives on peacemaking in practice and in theory, their implications for the international peace architecture, and different conflict-affected regions around the world, remain crucial. This series’ contributions offers both theoretical and empirical insights into many of the world’s most intractable conflicts and any subsequent attempts to build a new and more sustainable peace, responsive to the needs and norms of those who are its subjects. More information about this series at http://www.palgrave.com/gp/series/14500 Balázs Áron Kovács Peace Infrastructures and State-Building at the Margins Balázs Áron Kovács Mindanao, Philippines Rethinking Peace and Conflict Studies ISBN 978-3-319-89565-9 ISBN 978-3-319-89566-6 (eBook) https://doi.org/10.1007/978-3-319-89566-6 Library of Congress Control Number: 2018940660 © The Editor(s) (if applicable) and The Author(s) 2019 This work is subject to copyright. All rights are solely and exclusively licensed by the Publisher, whether the whole or part of the material is concerned, specifically the rights of translation, reprinting, reuse of illustrations, recitation, broadcasting, reproduction on microfilms or in any other physical way, and transmission or information storage and retrieval, electronic adaptation, computer software, or by similar or dissimilar methodology now known or hereafter developed. The use of general descriptive names, registered names, trademarks, service marks, etc. in this publication does not imply, even in the absence of a specific statement, that such names are exempt from the relevant protective laws and regulations and therefore free for general use. The publisher, the authors and the editors are safe to assume that the advice and information in this book are believed to be true and accurate at the date of publication. Neither the pub- lisher nor the authors or the editors give a warranty, express or implied, with respect to the material contained herein or for any errors or omissions that may have been made. The publisher remains neutral with regard to jurisdictional claims in published maps and institu- tional affiliations. Cover illustration: Guy Moberly / Alamy Stock Photo Printed on acid-free paper This Palgrave Macmillan imprint is published by the registered company Springer Nature Switzerland AG The registered company address is: Gewerbestrasse 11, 6330 Cham, Switzerland To my family who inculcated in me a love of justice, equality, and peace. ACKNOWLEDGMENTS First and foremost, I wish to thank Tony Lynch and Bert Jenkins for their immense help with this research, for reading countless versions of the draft text, and their advice, criticism and unconditional support. I am grateful to the University of New England and the Peace Studies Discipline for providing an intellectual home while I worked on this book. I thank the Australian Government and all Australians whose work, taxes and hospi- tality allowed me to do this. I thank Simon Stander and Mary Jo Larson, for being my mentors; Swee-Hin Toh, for kindness, wisdom and integrity; Victoria Fontan for showing courage bordering recklessness—or vice versa. Special thanks to Virginia Cawagas, Carmel V. Abao, Rob Fletcher, Harout Akdedian, Paddy Tobias, and Colin Hearfield for their valuable input at various points. Ateneo de Manila University has been my home in the Philippines since 2007 and the Ateneo Center for Asian Studies my institutional base dur- ing my field research. I thank the staff of the Center, in particular Anne Candelaria, whose insight on Philippine politics was of immense help. The Department of Political Science always welcomed and accommodated me and its faculty played a significant role in the development of my under- standing of the Philippines. Jennifer Santiago Oreta offered me tremen- dous and continuous help since 2007. Alma Salvador and Lourdes Veneracion Rallonza have been major support and sources of knowledge. I thank my friends at the University for Peace office: Karen Sunico, Wesley Briñas, Maria Luisa Lentejas, Airene Pascual, and of course Nabil Ramirez. Bradley Fenomeno, Ernesto Estonilo and Paul Escober helped me greatly vii viii ACKNOWLEDGMENTS in OPAPP and Major Jo-Ar Herrera in the Armed Forces of the Philippines. I thank all those who gave their time and knowledge in my interviews. Whatever your position in this conflict—I wish you peace. I owe a debt of gratitude to more friends in the Philippines and Australia than I can name. I thank Fr. Joey Cruz for his unceasing friendship and support; Teresa and Al Santos and all the Ricaforts and Santoses for way too many things; Benjamin and Judith Barretto and their family for laughs, food, wisdom, and Blue Eagles; Fermin Manalo, for insights and great conversations; Aileen Toohey for introducing me to the Philippines; Jinky and Joe Salvador for their hospitality and help; Nanay, Noel, Kareen, Jayram and the Mercado family for everything they have done for a virtual stranger; Ched, Jonel and the Cruzes for being great friends; Frances and Andrew Alter, Kathy Jenkins and Annette Kilarr for their friendship, advice and support. I am more grateful to my family than anybody else. To my parents, Gábor and Rita, and sister Edina, who made me into who I am. And to my dear wife, Nansiri, who heroically endures the product. I could not have made it here without you! CONTENTS 1 Preface 1 Part I Peacebuilding-as-Statebuilding—A Landscape 19 2 Introduction to Part I 21 3 Peace-building 29 4 State-building 53 5 State Formation, the Local and Hybridity 93 6 Peace Infrastructures 107 Part II Peaceful and Prosperous Communities 161 7 Introduction to Part II 163 ix x Contents 8 Manila: Designing Peaceful and Prosperous Communities—The PAMANA Framework 167 9 Sorsogon: Field Research Findings 189 10 Back in Manila: PAMANA—Peace-building, State- building and the Contested State 225 11 Whither Peace Infrastructures? 257 References 283 LIST OF FREQUENTLY USED ACRONYMS aND ABBREVIaTIONS 4Ps Pantawid Pamilyang Pilipino Program ADB Asian Development Bank AECID Agencia Española de Cooperación Internacional para el Desarrollo AFP Armed Forces of the Philippines BB Bantay Bayanihan BSPMC Barangay Sub-Project Management Committee CAFGU Citizen Armed Force Geographical Units CBA-CPLA Cordillera Bodong Administration/Cordillera People’s Liberation Army CHED Commission on Higher Education CLIP Comprehensive Local Integration Program CPP Communist Party of the Philippines CSO Civil Society Organisation DA Department of Agriculture DAR Department of Agricultural Reform DILG Department of the Interior and Local Government DSWD Department of Social Welfare and Development GRS Grievance Redress System IGO Inter-governmental organisation INGO International non-governmental organisation IPSP Internal Peace and Security Plan IRA Internal Revenue Allotment Kalahi-CIDSS Kapitbisig Laban sa Kahirapan-Comprehensive and Integrated Delivery of Social Services KC Kalahi-CIDSS LGC Local Government Code of 1991 xi xii LIST OF FREQUENTLY USED ACRONYMS AND ABBREVIATIONS LGU Local Government Unit MILF Moro Islamic Liberation Front MNLF Moro National Liberation Front NADESCOM National Development Support Command NCIP National Commission on Indigenous Peoples NDF/NDFP National Democratic Front of the Philippines NEDA National Economic and Development Authority NGO Non-governmental organisation NPA New People’s Army OECD Organisation for Economic Co-operation and Development OFW Overseas Filipino Worker OPAPP Office of the Presidential Adviser on the Peace Process Oplan Operation Plan PAMANA Payapa at Masaganang Pamayanan PDAF Priority Development Assistance Fund PNP Philippine National Police PO People’s Organisation POC Peace and Order Council RPM-P/RPA-ABB Rebolusyonaryong Partido ng Manggagawa ng Pilipinas/ Revolutionary Proletarian Army—Alex Boncayao Brigade S.O.P. Standard operating procedure (revolutionary tax/ extortion) TPM Third Party Monitor UNDP United Nations Development Programme UNDP-BCPR United Nations Development Programme Bureau for Crisis Prevention and Recovery UNSG United Nations Secretary General LIST OF FIGURES Fig. 1.1 Prieto Diaz, Sorsogon. Picture by author. Date: 28 October 2014 12 Fig. 1.2 Irosin Valley, Sorsogon. Picture by author. Date 09 November 2014 12 Fig. 8.1 Zone of Peace, Prieto Diaz, Sorsogon. Picture by author. Date: 28 October 2014 168 Fig. 8.2 Spillway—a PAMANA Pillar 3 project, Casiguran, Sorsogon. Picture by author. Date: 4 September 2014 175 Fig. 8.3 Pathway, a PAMANA Pillar 2 project, Prieto Diaz, Sorsogon. Picture by author. Date: 28 October 2014 177 Fig. 8.4 Streetlight installed in a barangay through PAMANA Pillar 2, Sorsogon. Picture by author. Date: 8 November 2014 178 Fig. 8.5 Municipal Inter-Barangay Forum, Irosin, Sorsogon. Picture by author. Date: 13 November 2014 180 Fig. 9.1 Neo-patrimonial electoralism in action: credit-taking. Photo credit: Márton Bede. Date: 20 April 2008 192 Fig. 9.2 Mass recruitment. DSWD announcement for jobs in Kalahi- CIDSS in Bicol. Sorsogon City. Picture by author. Date: 01 November 2014 194 Fig. 9.3 Barangay Assembly, Irosin, Sorsogon. Picture by author. Date: 16 November 2014 196 Fig. 9.4 Municipal transparency board. Irosin, Sorsogon. Picture by author. Date: 28 August 2014 198 Fig. 9.5 PAMANA Pillar 2 billboard, Prieto Diaz, Sorsogon. Picture by author. Date: 28 October 2014 199 xiii xiv List of Figures Fig. 9.6 Penetrating the areas of the NPA through PAMANA—sketch prepared by Interviewee 8, handwritten notes by author. From author’s research notes. Date: 16 May 2014 206 Fig. 9.7 Philippine Army camp, Sorsogon. Picture by author.