Background

By the new constitution introduced by Aquino Administration in 1987, the establishment of Autonomous Region in Muslim Mindanao (ARMM) was officially decided.  By following this decision, the ARMM basic law was enacted in 1989 and ARMM government officially started to function.  Currently, ARMM consists of six provinces and two cities. The estimated population of ARMM is about 2.8 million. Due to the prolonged armed struggle, ARMM is the most underdeveloped socially and economically in the Philippines and the poverty rate is twice of the national average. One of the primary causes for the social and economic underdevelopment of ARMM is considered as the delay of on-going peace negotiation between MILF (Moro Islamic Liberation Front), which was separated from MNLF (Moro National Liberation Front), and the central government. In addition, administrative capacity of the ARMM government has not been regarded as sufficient for execution of autonomy, the autonomy which was defined by the current constitution of the Republic of the Philippines, and for promotion of the social and economic development of the region.

There are several obstacles which hinder smooth implementation of public administration by the ARMM government.  First is the long armed struggle of more than 40 years, as mentioned above.  Second is the delay of devolution of administrative authority from the central government to the ARMM government and delay of institutional arrangement within the legal sphere of the ARMM government.  Third is lack of professional training for administrative staff of the ARMM government, which included former MNLF soldiers. As the result, provision of appropriate administrative service to the people has been prevented and shortfall of infrastructure development in the region became evident.

With this background, the ARMM government executed “ARMM Human Resource Development Project” from December 2004 to March 2007, with support of JICA.  In this project, ARMM senior executives and middle management officials (about 440) received professional training at AIM (Asian Institute of Management) and they could advance their administrative capacity in general terms. For the governor and other senior executives, the subjects of training were focused on policy planning, leadership and organization management.  For middle management officials, the training curriculum emphasized on project management skills. On the third year, the main theme of the training program was shifted to the priority area for social and economic development of the ARMM government (economic development, infrastructure development, good governance and administration, peace, public order and security, social development).   In the third year program, methodology and techniques for problem solution, the preparatory and review process for issues and conflict solution were taught in the project.  At the end, it is confirmed by both Japanese and Philippines authorities that there is a certain achievement in this project, such as enhancement of knowledge on public administration and regional development, learning of planning and management technologies.

However, as far as the capacity development of administrative management is concerned, there are many problems and constraints among ARMM government officials.  The middle management and operating core people urgently needs to develop their management skills in practice and to advance their technical ability.  In reference to this reality, the Government of the Philippines made a request to the Government of Japan for introduction of a new technical cooperation project, which aims at further strengthening of administrative capacity of middle management and operating core of the ARMM government.  In response to this request, the Government of Japan committed to implement a new technical cooperation project in the ARMM government.

Considering the successful completion of the “ARMM Human Resource Development Project” and trends of other donor’s aid programs, the purpose of the new project was defined to improve technical and administrative capability of the middle management and operating core people in economic and infrastructure development related departments of ARMM government.  The title of the new project is named to “ARMM Human Capacity Development Project”.  In addition, a preparation activity of “ARMM Administrative Code”, which is continuity from previous project, and personnel information management, is also included as the subjects of JICA support.  Thus, the new project is designed to consolidate the foundation of administrative capacity of the ARMM government.

In another sense, within the framework of “Initiative for Peace and Development in Mindanao” which is the mid-term plan of JICA support to Mindanao, this project is identified as the education project for the ARMM government officials to become capable counter-part officials.  Then, the mid-term plan intends to support social infrastructure development such as construction of school building, health post and water supply facilities at community level.  It also supports industrial development in the region and strengthening of the economic interdependence with other regions.  Through these means and ways, the mid-term plan aims to contribute to overall development of Mindanao.  Based on this targeting, the mid-term plan covers support plans for local industry development which include halal industry promotion, and infrastructure development which are prerequisites for economic development.  This training project is also expected to produce synergy effects by interrelating each other with these support plans.