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Republic of the Philippines

House of Representativd

Queson City, Metro Manila

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Sixteenth Congress
First Regular Session

HOUSE BILL NO. 669

Introduced by HON. SITTI DJALIA A. TURABIN-HATAMAN

EXPLANATORY NOTE

Mindanao, because of the intermittent armed conflict
there, especially in Central Mindanao, has in recent times
witnessed the mushrooming of people-initiated, community-based
responses in the form of Peace Zones, also known as
“sanctuaries of Peace” and “Spaces for Peace.” At least 47
communities in Maguindanao, North Cotabato and Lanao del Sur
have declared themselves as “Sanctuaries of Peace” with
support from the NGO Tebang Mindanaw. Several communities in
Pikit, North Cotabato have declared themselves as “Spaces for
Peace” with support from the local parish office. Peace Zones
have also been declared in Barangay. Barrio, Alabaman, Lanao
Del Sure; Brgy. Bayanga Norte, Matanog, Maguindanao; Brgy.
Makix, Datu Odin Sinsuat, Maguindanao; Brgy. Daguan,
Kapatagan, Lanao del Sur; So. Cagawaran, Bgy. Tugaig, Barira,
Maquindanao; and Bgy. Mataya, Buldon, Maguindanao with support
from the NGO Community Organization Multiversity.

The Peace Zone idea first arrived in 1988 and has since
taken root in a number of places buffeted by internal armed
conflict from North to South of the country. The pioneers were
the various forms of Peace Zones (some called “Zones of Life”)
in Naga City, Camarines Sur;  Sagada, Mountain Province;
Tabuk, Kalinga~Apayao; So. Cantomanyog, Bgy. Haba, Candoni,
Negros Occidental; and Bgy. Bituan, Tulunan, North Cotabato.
The latter led to the establishment of three more peace zones
in Tuluna: So. New Alimodian, Boy. Banayal; So. Miatub,
Bgy. Tuburan; and Bgy. Nabundasan.

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In more recent times, Tulunan has also seen a Peace Pact
in Bgy. Dungos. Local peace alternatives to ethnic conflict in
Mindanao have emerged as Peace Zones in Bgy. Bual, Isulan,
Maguindanao; Dinas, Zamboanga del Sur and Bay. Maladeg,
Sultan Gumander, Lanao del Sur. These and other Peace Zones,
in the context of recent hostilities in Central Mindanao, show
that people need not wait for top-level negotiations between
the government and the rebel groups to come to terms with each
other. At the same time, it is unfortunate that the government
has sometimes made a parody out of Peace Zones by declaring
overrun and occupied MILF camps as such, thus distorting the
concept.

There is a need, therefore, to not only clarify the
concept of Peace Zones but also, more importantly, set a
national policy of openness, respect, recognition,
consultation, appropriate support, and ensuring the integrity
and autonomy of this valuable Filipino innovation and
contribution to peace-building. This would complement and
deepen a comprehensive national peace policy. The most
important thing is to affirm Peace Zones as citizens’
initiatives regarding which government should play only a
supportive role.

Peace Zones are geographical areas which community
residents themselves declare to be off-limits to armed
conflict. They could range in size from the area covered by a
purok or neighborhood to that of a province. Based on terms
‘and conditions set by the people themselves, Peace Zones are
maintained and reinforced by the community’s sustained,
creative expressions of commitment to peace-building, which
are expressed and managed through community-based implementing
structures.

Peace Zones constitute a people-initiated, community-
based response to the situation of raging armed conflict in
the country. They work to intervene and immediately relieve
local communities in situations that threaten the security of
life, property, and livelihood of the civilian population.
They seek to create a “social space” in which to address and
resolve community issues as well as to pursue a local
development agenda on the community’s own terms. They lay the
groundwork for pluralism and dialogue immediately on the local
level in order to explore alternative modes of conflict
resolution, in accordance with their local culture and
traditions.

Peace Zones all over the country comprise a major
grassroots constituency for the pursuit of peace processes at
the national level. They support the peace process at the
horizontal level and are not totally separate from the peace

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talks at the vertical level. They are not necessarily
political solutions but can help explore peaceful processes
that could address the root causes of the armed conflict and
lead to social transformation.

The national level, particularly Congress, must in turn

consolidate and reinforce the best practices at the local
level such as Peace Zones. Early passage of this bill is,

therefore, requested.
Fe es oe ee

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Republic of the Philippines
House of Representatives

Quezon City, Metco Manila

Sixteenth Congress
First Regular Session

669

HOUSE BILL NO.

Introduced by HON. SITTI DJALIA A. TURABIN-HATAMAN,
of Anak Mindanao (AMIN) Party List

AN ACT DECLARING A NATIONAL POLICY ON PEACE ZONES

Be it enacted by the Senate and the House of
Representatives of the Philippines in Congress assembled:

SECTION 1. Short Title. - This act shall be known as
“The Peace Zones Policy Act of 2004.”

SECTION 2. Definition of Peace Zones. - A peace zone is
a people-initiated, community-based arrangement in a local
geographical area which residents themselves declare to be
off-limits to armed conflict primarily to protect the
civilians, livelihood, and property there and to contribute to
the more comprehensive peace process.

The generic term “peace zones” shall also cover other
similar people-initiated, community-based arrangements known
as “zones of life,” “sanctuaries of peace,” “spaces for peace”
and the like where there is a declared will of the people and
a commitment of conflicting armed forces not to make their
communities a battleground.

SECTION 3. Characteristics of Peace Zones. sf In
seeking adherence of the armed parties to the conditions that
have been set by the community, a Peace Zone will need to show
the following characteristics which establish that it is a
community-based people’s initiative:

a.It is declared and supported by a multi-sectoral group
of community residents, the more broadly-based the


better, including ideally support or conformity of the
warring parties. In many cases but not necessarily,
there will be a high level of participation from
community-based religious leaders and/or members of the
local government.

b. The specific boundaries of the Peace Zone have been
clearly established.

¢.A formal launching of the Peace Zone has been held in
the community in accordance with the people’s own
culture and tradition.

d. There is a written declaration or resolution
establishing the Peace Zone, containing the specific
terms and conditions to be followed within the Zone,
applying to all relevant parties, including community
residents and the armed parties. The terms and
conditions must show no partiality to any armed party.
The terms and conditions should be as simple as
possible starting with the rule that the community
shall be off-limits to armed conflict or not made a
battleground by the armed parties in respect of the
will of the people. Other terms and policies should be
allowed to evolve and be modified as the situation
develops. Community particularities should likewise be
respected.

e. Community residents are organized to maintain the Peace
Zone, with community-based implementing structures,
which identify clearly established tasks and lines of
responsibility. The supportive role of external
facilitators like the Church or NGOs should also be
clearly defined.

SECTION 4. Basic Policy on Peace Zones. - The basic
policy on Peace Zones shall be one of openness, respect,
recognition, consultation, appropriate support, and ensuring
their integrity and autonomy.

SECTION 5. Specific Policies on Peace Zones. - Some
specific policies on Peace Zones shall be as follows:

a. Peace Zone proponents will undertake direct
negotiations separately with each armed party. Any
agreement reached with a combatant group constitutes a
bilateral pact, autonomous of any agreement that may
be reached with other armed parties.

b. Peace Zones shall, as much as possible, be
demilitarized of both government and dissident armed


forces, including paramilitary forces and private
armies. This does not preclude the community from
agreeing to the deployment of peace-keeping or law
enforcement units for protection from criminal
elements as the situation warrants..

Peace Zones shall be oriented to the peace process,
and not be used for counter-insurgency or for rebel
base-building.

Special development assistance to a Peace Zone shall
be subject to community-based decision-making and
implementation. Development programs and projects
should be identified, requested or agreed on by the
community.

Peace Zones shall not be subjected to any blockade of
food, vital services and development projects approved
of by the local community.

SECTION 6. Official and Formal Agreement with
Government. - For a Peace Zone to achieve an official and
formal agreement with the government, the following processes
shall be observed:

A copy of the written Peace Zone declaration will be
officially forwarded to the Office of the Presidential
Adviser on the Peace Process (OPAPP), directly by the
community or through supporting peace groups. It
would be ideal for such declaration to be supported by
the local government authorities at the barangay,
municipal/city and provincial levels and by the
district or party-list representative concerned.

The OPAPP will assume ultimate responsibility and
authority, on behalf of the President, for the
government’s side of the process, coordinating with
the necessary line agencies and the military, on local
and/or national levels, including for the issuance of
any necessary directives.

The process will include a direct dialogue with the
local Peace Zone proponents during which the specific
terms and conditions of the Peace Zone will be
discussed.

Following the process undertaken within a reasonable
time frame, the OPAPP will issue a written statement
of its decision on whether or not it will enter into a
formal agreement with the Peace Zone. If positive, a


Memorandum of Agreement will be jointly drawn up
constituting terms agreeable to both parties.

e. There may also be joint local government-community and
church-community action on Peace Zones.

SECTION 7. Sanctions. - Sanctions shall be imposed
by the armed parties on members of their own forces that
violate their agreements with a Peace Zone that it has duly
recognized. Such sanctions shall be binding. On the part of
government, administrative charges shall be filed against
errant members. Moreover, the “dictates of the public
conscience” shall be applied to parties that choose to ignore
the people’s declaration of a Peace Zone.

SECTION 8. Repealing Clause. - Any provision of law or
regulations inconsistent herewith is hereby repealed, revoked
or modified accordingly.

SECTION 9. Separability Clause. - If any provision of
this Act is declared unconstitutional or inoperative, the
other provisions shall remain in force and effect.

SECTION 10. Effectivity Clause. - This Act shall take

effect fifteen (15) days after publication in a newspaper of
general circulation.

Approved,

eal ‘A. TURABIN-HATAMAN