Lesson 13: Week 17
History of Terrorism in the Philippines
(An International Fact-Finding Mission Report)
Learning Objectives:
At the end of this lesson, the student will be able to:
• describe the emergence of insurgency and terrorism in the Philippines
• associate terrorism with cultural and religious aspects
• explore the various initiatives of the Philippine government to counter
terrorism and address insurgency.
General context
Located in South East Asia, the Republic of the Philippines comprises 7,107 islands
which are commonly divided in three groups: Luzon, Visayas and Mindanao. The
capital city, Manila, is located in Luzon.
The Philippines is the 12th most populated country in the world with 96 million
inhabitants. It is also the 4th largest Catholic nation with about 80% of Christians,
whereas Muslims form a minority throughout the country (approximately 5%). The
rest of the population is made up mostly of smaller Christian denominations as well
as indigenous people, part of which are animists.
Before its independence in 1946, the country was successively dominated by
Spain (16th to 19th century) and by the United States of America (1898-1946).
Before Spanish colonization, part of the inhabitants were animists while part
were Muslims as a result of trade with the Arabs. Spanish colonization imposed
Christianity upon the country, and the Muslims were called Moros.6 Today,
Bangsamoro (“the Moro People”) are mainly settled in the Southern islands of
Mindanao, Basilan, Sulu, Tawi-Tawi and Palawan. They were never colonized neither
by Spain, nor by the USA – which introduced a system of government that was
criticized for leading to the “minorization and marginalization” of the Moros and
indigenous people in Mindanao.7 The ancestral domain of Moros and indigenous
people was declared as public land; this is an issue still bearing consequences
today, the indigenous people’s claims for ancestral domains being still not
recognized.
When independence was declared on July 4, 1946 and the Republic of the
Philippines was established, it comprised Luzon, Visayas and Mindanao. The Moros
reiterated their objections but Mindanao was nevertheless incorporated under the
Republic. From the independence onwards, Muslims and indigenous people have
been complaining that they are marginalized politically and economically, except for
a few rich families.
The Philippines counts natural resources comprising oil, timber, nickel, cobalt,
silver, gold… In addition, its soil is rich and fertile. But land tenure has been – and
still is – a controversial issue across history. About half of the population is rural and
agriculture is the primary and often only source of income for rural poor people,
whereas important land is owned by powerful landlords. An agrarian reform is
ongoing and should end in 2008, but concrete implementation is extremely
protracted because of landowners’ resistance and this generates frequent tensions.
The communists (CPP, NPA and NDFP)
The Communist Party of the Philippines (CPP) was re-established8 in 1968 by
Jose Maria Sison, a professor at the University of the Philippines. CPP adopted a
strategy based on the struggle for national democracy through a two-stage
revolution: a protracted people’s war to be followed by a Socialist Revolution. One
year later, the New People’s Army (NPA) was organized as the guerilla-military wing
of the Party, to wage a peasant-worker revolutionary war in the countryside against
landlords and foreign companies. CPP heads the National Democratic Front of
the Philippines (NDFP), which is the political-diplomatic arm of CPP-NPA. It is
estimated that the guerrilla army of CPP now consists of about 10,000 persons.
CPP-NPA has been labelled as a terrorist organization by the US Government and
by the European Unionvv(EU) Council. The Philippine government has not made a
formal decision classifying CPP-NPA as a terrorist group but it openly considers it as
such
CPP-NPA-NDFP sees itself as a broad political, revolutionary and liberation
movement and claims that it does not attack civilian targets and that it adheres to
international law. NPA nevertheless claimed responsibility for the assassination of
two congressmen in May 2001 whom it considered as “legitimate targets.”
Former CPP chair Rodolfo SALAS acknowledged that in the 1980s, internal
purge of persons suspected to be government and army infiltrators within CPP
resulted in torture and execution of about 1,800 cadres and civilians.14 This fact is
still used by the government and by the army to attribute the responsibility of
current extrajudicial killings to CPP.
Peace efforts to end the armed conflict between the Government of the
Republic of the Philippines and NDFP have been going on for 21 years but stalled in
2004. On June 16, 2006 the President Gloria Macapagal-Arroyo declared an all-out
war against NPA. However, on September 5, 2007, she signed – conditional to the
respect of certain criteria – an Amnesty Proclamation, to become effective only after
Congress has approved it.
Peace talks stalled with one substantive agreement as an achievement
though, the Comprehensive Agreement on Respect for Human Rights and
International Humanitarian Laws (CARHRIHL). To oversee the implementation of this
agreement by both sides, the parties have jointly appointed a Joint Monitoring
Committee (JMC).Although it has not convened since 2004 and it has not agreed
upon a common procedure, it has continued to register complaints about human
rights violations.
Dangerous amalgam between the CPP-NPA and legal “leftist”
organizations
A recent statement made by President Arroyo during a visit she paid to the Local
Peace and Security Assembly (LPSA) of the Bicol region on December 13, 2007,
shows that the executive branch of the Government does not always distinguish
between the groups promoting an ideology in a peaceful way and groups using arms
and violence to promote the same ideology. Indeed, President Arroyo thanked LPSA
for “supporting her vision to eradicate communism in the country by the year 2010”;
President Arroyo spoke about communism as such and not only about the
communist insurgency.
During a meeting of the FIDH mission with the AFP Vice-Chief of Staff and a
dozen of high-ranking officers at the AFP General Headquarters on August 16, 2007,
AFP denied any implication in extrajudicial killings. The senior military prosecutor
present at the meeting told the FIDH mission that groups such as NPA, MILF and Abu
Sayyaf are clearly “enemies of the State” and that AFP is acting in the framework of
the law.
The senior military prosecutor added that there are legal groups supporting NPA
and MILF and that not all members of those legal groups are considered as “enemies
of the State.” However, according to this high-ranking officer, some prominent
members of those groups have been identified, on the basis of documents allegedly
recovered by AFP, as giving the order to kill civilians. Unfortunately, AFP did not
provide the FIDH mission with a written list of names and did not inform it about the
resulting judicial proceedings. Moreover, the same senior military prosecutor told the
FIDH mission that the AFP soldiers and officers can tell and recommend to people,
especially in zones where NPA is active, to avoid joining legal groups.
“Leftist” organizations are labelled as “enemies of the State”: legal and peaceful
organizations like peasant or fishermen associations, mass organizations or political
parties like Bayan and Anak Pawis are often amalgamated with CPP-NPA, which is an
armed group.
In February 2006, President Arroyo declared a week-long state of Emergency in
response to alleged conspiracies involving members of the opposition (including
“leftists” but also rightists and members of the military). At least hundreds of
“leftists” – whether belonging to legal and peaceful organizations or to armed ones –
were arrested. Charges seemed largely groundless and politically motivated.
In 2005, a slide presentation entitled “Know the Enemy” was reportedly made
available to the public. Among others, it listed “legal front organizations” (like party
list groups, religious organizations, women organizations, student associations)
allegedly allied with CPP-NPA and hence considered as “enemies of the State.”
Despite official denial by AFP, it is reported by many different stakeholders that AFP
further broadcasted on TV a similar propaganda film in 2006, after the issuance of
the February state of emergency. The film intended to discourage people to belong
to a list of legal left organizations, accusing the latter of being too close to CPP-NPA.
In parallel, three books entitled “The Trinity of War” were also issued by AFP, which
also contained a list of organizations labeled as allied of CPP-NPA, including peaceful
and legal political parties. Finally, “Orders of Battle” have reportedly been
established, identifying sectoral groups (people belonging to a particular category
such as farmers, youth, women, workers, etc.) alleged to be fronts of the communist
underground. The Order of Battle is a list of enemies ranked according to their
importance. According to KMP (Philippine peasant organization), the documents do
not use the term “kill” but say “neutralize.” General Palparan has reportedly been the
leading military figure promoting such guidelines. When asked about his previous
statements accusing organizations such as Bayan, Karapatan or Gabriela as front
organizations of CPP-NPA, General Palparan neither confirmed nor denied having
made such statements.
The legal left-wing political party Anak Pawis also has reportedly been labeled as
“front organization.” As Crispin “Ka Bel” B. Beltran, member of the House of
Representatives elected on the Anak Pawis party-list, says: “Election law foresees
that any political party advocating for or engaged in the use of arms should be
dismissed. Hence, as long as no evidence is found of such acts, all political parties –
including so-called ‘leftist’ ones – should not suffer from any ‘labeling.’ Would it not
be the case, pressure would be put on electors so as to encourage them to support
other parties.”
This practice of “labeling” is extremely worrying, especially since the majority of
victims of human rights violations belong to so-called “leftist” organizations. Even if
they might share the same ideology, a clear distinction should be drawn between
peaceful legal parties and organizations on the one hand and the armed groups on
the other hand.
The Muslim secessionists: MNLF and MILF
There are two main Muslim armed groups in the Philippines, which were
initially forming one single movement: The Moro National Liberation Front (MNLF)
and the Moro Islamic Liberation Front (MILF) which appeared later. Both advocate for
the independence of the Southern island of Mindanao, but MILF agenda is more
rooted in Islam.
The Moro National Liberation Front (MNLF)
MNLF was organized in the late ‘60s - early ‘70s by Nur Misuari, a former
professor at the University of the Philippines. The goal of MNLF was to establish an
independent Moro nation through an armed struggle. The armed group is mainly
based in Mindanao. It is also a political organization in the Philippines, accredited by
the Organisation of the Islamic Conference (OIC).
On September 2, 1996 the Jakarta Accord, brokered by OIC between MNLF
and GRP was signed. This gave predominantly Muslim areas in Mindanao a degree of
self-rule with the establishment of the Autonomous Region in Muslim Mindanao
(ARMM). Nur Misuari became the regional governor and many of the MNLF armed
units were integrated into AFP. The MNLF leader was nevertheless later arrested in
2001 and is still under house arrest today. He is very popular in the Philippines but
his attempt to collaborate with GRP was seen as a mistake by some – including MILF.
According to him, MNLF reportedly still counts more than 20,000 supporters.
To summarize the relations between civilians and MNLF and referring to support
received from peasants, he says “You don’t cut hands which feed you!” A tri-partite
meeting was set for July 2007 between MNLF, GRP and OIC in order to revise the
1996 Jakarta peace accord. It was however delayed. Nur Misuari said to the FIDH
mission that MNLF never attacked but only defended itself and he insisted on
brotherhood with his “friends indigenous and Christians. MNLF is not listed as a
terrorist organization.
Interview of Mr. Nur Misuari who is under house of arrest, in the presence of a spiritual leader of MNLF
and under the surveillance of a guard.
The Moro Islamic Liberation Front (MILF)
MILF broke away from MNLF in 1977, in order to put more emphasis on the
Islamic roots of the movement. It views poverty, the land issue and economic
underdevelopment in Mindanao as a result of the colonization of the BangsaMoro
people by the Philippine government.
MILF was established by Ustaz Salamat Hashim, who became its chairman.
Before his death in July 2003, he issued a statement denouncing terrorism and
reiterated MILF commitment to achieve peace through a political settlement. MILF
also claims to be committed to make use of anti-personnel landmines strictly for
defensive purposes and in a discriminate manner.
MILF is nevertheless carrying what it sees as a war for self-determination. Its
spokesperson told the FIDH mission that MILF never initiated violence but responded
when it was attacked by soldiers violating its territory, admitting that this might have
caused “collateral damages.” He added that terrorism was not an issue but that it
was a theme exploited by the government.28 Like MNLF, MILF also acknowledges
that “lost commands” and “lawless elements” taking refuge in their territories but
disowned by their leadership, might be responsible for acts of violence.
MILF has not been listed as a “terrorist organization” by the US and the
Philippine government29 but it continues to be a target in the anti-terrorism
campaign of the latter for having links with Al Qaeda and Jemaah Islamiyah (JI). MILF
recognizes having been approached by the latter, but denies any collaboration with
it. MILF is said to have about 12,000 to 12,500 members.30 It is mainly based in
Mindanao and – like the MNLF – reportedly receives popular support.
GRP-MILF peace negotiations31 started in January 1997 and went back and
forth until now. Attacks allegedly perpetrated by MILF against civilians, supposed
links with JI and hostile attitude of the government towards MILF notably explain
that the process has been slowed down. The incident of Filipino marines who were
beheaded on the island of Basilan in July 2007 revived the tensions between MILF
and GRP.32 MILF disagrees with the GRP accusation of beheading but recognizes the
killing of the marines, considered as “legitimate” targets. Exactions committed by
AFP (including torture) are also criticized by MILF as an obstacle to the negotiations
Abu Sayyaf, Jemaah Islamiyah and Rajah Solaiman Movement
The three aforementioned groups appeared more recently in the Philippines
and reportedly have links with Al Qaeda, according mainly to the information
provided by the USA authorities. Depending on the interlo-cutor from the civil
society, FIDH was told that they are a “US product” or even do not exist. The majority
of the people met by the mission agree on the fact that they only consist of a few
criminals led more by profit than by any ideology. Human Rights Watch however
listed a series of attacks perpetrated by those groups.
Like MNLF and MILF, they are mainly located in the Southern island of
Mindanao. However, both MNLF and MILF claim to distance themselves from
partnership with these extremist armed groups; individual Jemaah Islamiyah (JI) or
MILF members may however join militant alliances with Abu Sayyaf Group (ASG).
ASG and JI are working increasingly with Rajah Solaiman Movement (RSM), militant
converts to Islam based in Manila and northern Luzon, who are a vehicle for more
experienced terrorist groups to move into the country’s urban heartland. Abu Sayyaf
and Jemaah Islamiyah are considered by the USA as terrorist organizations, as well as
by AFP which also listed RSM as a terrorist organization.
References:
E. San Juan Jr., “Terrorism and Revolution: The Struggle for National Democracy and
Socialism in the Philippines.”
See http://clogic.eserver.org/2005/sanjuan.html
By Secretary of State Colin Powell on August 9, 2002 under Executive Order 13224.
On August 9, 2004, the US Secretary of State re-designated them, as a
Foreign Terrorist Organization under the Immigration and Nationality Act.
EU Council decision of 21 December 2005 Implementing Article 2(3) of Regulation
(EC) No. 2580/2001 on specific res-trictive measures directed against certain persons
and entities with a view to combating terrorism and repealing Decision
2005/848/EC, Official Journal of the European Union, 23.12.2005, L 340/64.
Cornish, M., “Communist Party of the Philippines pursues a violent course against its
left opponents,” Freedom Socialist, Vol. 26, No. 4, August-September 2005.
See e.g. Armed Forces of the Philippines press release, “CPP/NPA Covers Up its
Activities,” September 4, 2006: http://www.afp.mil.ph/0/news/cncov.php
Learning Activity : News Analysis
Requirement:
Download any news clip or article online which reported terror attacks by the
separatists, communist rebels, ISIS-inspired groups, and other insurgents in the
Philippines. Basing from this news article answer the following:
1. What is the motive or intention of the terror attack?
2. Do you think the attack will satisfy their cause/motive?
3. How do you think should the government respond to such attack?
