Basilan, Sulu & Tawi-tawi

(BaSulTa)
PROBLEMS, CHALLENGES AND
OPPORTUNITIES

Based on a Study conducted by the

Ateneo Research Center

Ateneo de Zamboanga University
With inputs from Tabang Mindanaw
and Assisi Development Foundation

BASULTA STUDY:

Backgrounder
What is the Situation? What explains the
Situation? Problems and Challenges

What can be done? Opportunities for Intervention

Moving forward : Some Proposals

BASULTA STUDY:
GOVERNANCE AND HUMAN SECURITY SITUATION
OBJECTIVES:
To present the socio-economic/human security situation
of BaSulTa vis-a-vis the ARMM and Mindanao;

To present the economic development situation of

BaSulTa for possible use of industries and business, and
government;

Conduct an assessment of governance capacity of

local government units and other institutions such as
the church and the civil society groups as
development delivery mechanisms.

Basilan

Sulu

Tawi-Tawi

Basilan

Has seven (7) municipalities and one (1) city, Isabela as

capital.
Became part of Zamboanga in 1901. Chavacanos and Visayans
settled in Isabela to work in the rubber plantations.
A city in 1948 and a province in 1973.
Home to a mix of Muslim and Christian population who became
polarized during the 2001 anti-Christian provocations of the
Abu Sayyaf.

Basilan Profile
Ethnic groupings: (41.3%) Yakans, (23.0%) Tausug,
(11.9%) Chavacano, (10.1%) Samals, (14%) mix of
Visayans, Cebuanos & Badjaos.

Christians own 75% of the land, and ethnic Chinese controls

75% of the local trade.
More than half of live in poverty and are mostly agricultural
workers, fisher folks and farmers.
Bangsa Moro guerillas actively operated in Basilan in the
70s.
In 1991, the Abu Sayyaf was founded by Abdulrajak Janjalani
with members recruited from the young alienated Muslims who
found no hope or opportunity for advancement within the
stream of Philippine society.

Sulu

The Sultanate of Sulu was recognized as a political entity by

sovereign nations as early as the 14th century. Before the advent
of Islam, Sulu had datus or chieftains with defined rights and
privileges.
Agriculture-based, with large areas planted to coconut, cassava,
rice and corn. Coffee and fruit trees were also cultivated.
Sulu waters is a rich fishing ground for various marine resources.

Sulu Profile
Has 18 municipalities with more than 400
islands and islets from the tip of Zamboanga
toward Borneo; Jolo is the capital town.
The Tausugs (people of the current) form
the biggest segment (85.27%) of the
provincial population of 619, 668. The
smaller ethnic groups (Badjaos, Samals,
etc.) are generally socially discriminated.
Has the most number of private armed
groups in the country.
Has consistently posted the highest
poverty incidence in 1997 and 2000.

Tawi-tawi

Was separated from Sulu and created as a separate province on 11

September 1973.
Its water resource area is many times larger than its land area and
is one of the richest fishing grounds in the country. It is the habitat of
the prized tuna and is the primary producer of seaweeds.
Despite the absence of large agricultural land, the province has rich
fertile soil that produces coconut and cassava, its two major crops.

Tawi-tawi Profile
Has more than 307 islands including Cagayan de Mapun island,
Turtle island and Tawi-tawi island groups; Has ten (10) island
municipalities with Bongao as capital town.
95 percent of the population are Muslim while the remaining
five percent is a mixture of Christian and other religions.
By ethnic grouping, Sama (84%) constitutes the biggest group
while the rest (16%) are a mix of Tausugs, Jama Mapun and
others.
Tawi-tawi ranked as the 3rd poorest province in 2000 from #40
in 1997 indicating a drastic fall in income level among its poor &
non-poor population groups.

WHAT IS THE SITUATION?

Human Development Indicators

Indicators

Basilan

Sulu

Tawi-tawi

ARMM

RP

Intl
Comparison

83/77

(HDI Bottom 2
countries) Sierra
Leone
Niger

0.753

Mali 0.326
Chad 0.379
Guinea 0.425

HDI Rank
(province PHDR, 2000:;
HDR, 2004)

68/77

77/77

76/77

HDI
(PHDR, 2000; HDR, 2004)

0.42

0.311

0.378

Human Development Indicators

Indicators
Population (2000)
Life Expectancy at Birth
(HDR, 2004)

Basilan

Sulu

Tawi-tawi

ARMM

RP

332,628

619,668

322,317

78.6 M

60.2

52.3

50.8

Probability at birth for not

surviving to age 40 cohort

18.1

28.6

29.7

Infant Mortality (HDR, 2004)

Families with Access to water

(APIS, 1999. WDI, 2000; HDR,
2004)

55.9

29.9

11.4

(PHDR, 2002; HDR, 2004)

57.4

69.8

Intl
Comparison

Senegal 52.7
Benin 50.7

7.4

Gambia 29.6
Gabon 28.1

63

29

Sudan 64
Lesotho 64

61.6

86

Chad 27
Togo 54

Human Development Indicators

Indicators
Poverty Incidence
(NCSB, 2003, HDR, 2004)

Ave. Annual Per Capita

Income (FIES in PHDR, 2002)

Poverty depth (PHDR, 2002)

Per cent HS Graduate
Adult Functional Illiteracy
(age 15+)

Basilan

Sulu

Tawi-tawi

ARMM

RP

Intl
Comparison

63

92

75.3

62.9

36.9

Zambia 72.9
Malawi 65.3

P13,193

P 7,850

P 11,349

P 48,816
(MM)

16.7

37.3

25.8

7.2

28.6

18.1

34.2

51.9

42.3

47.3

7.4

Chad 54.2
Sudan 40.1
Haiti 48.1

0.583

Senegal
Mauritania

% Basic Enrollment Rate

82.1

77.7

Cohort Survival Rate

(PHDR, 2002)

34.3

29.7

42.8

33.96

(PHDR, 2002, HDR, 2004)

School enrollment of 66-12

yrs. old among the
poorest
(WB, 2003)

BASULTA SAMPLE SURVEY

Average Monthly Household Income
BASILAN

SULU

TAWI-TAWI

Frequency

Percent

Frequency

Percent

Frequency

Percent

6.6

5.5

4.4

P1,000 -P1,999

16

17.6

12

13.2

8.9

P2,000 -P3,999

42

46.2

24

26.4

27

30

P 4,000 - 5,999

11

12.1

20

22

12

13.3

P6,000 - 7,999

5.5

6.6

8.9

P8,000 - 9,999

4.4

11

12.1

3.3

P10,000 above
No Income

4.4

12

13.2

21

23.3

2.2

1.1

7.8

No Fixed
income

1.1

91

100

91

100

90

100

Below 1000

Total
ADZU/TM Survey, 2004

Community level (Micro)

ECONOMIC INFORMATION

Monthly Income :
From fishing
From mat weaving
From day labor
Washing clothes daily
From tailoring

400 pesos
600 pesos (2 mats)
50 pesos
600 pesos
300 pesos

Average monthly income of Badjao residents in Ponduhan, Siasi :

Number of
Families

Average Mo.
Income per HH

Percentage

104

PhP 752

95

none

PhP 752

100

6
Total

110

Source: Social Action Center AVJ, Baseline Survey-Ponduhan, June 2004

BASULTA SAMPLE SURVEY

Human Resource (Mostly mainland barangays):

Basilan

Sulu

Tawi-Tawi

Elementary

51 (21.43)

35 (13.72)

39 (16.45)

High School

65 (27.31)

70 (27.45)

69 (29.11)

College

94 (39. 5)

95 (37.25)

100 (42.19)

Graduate

Vocational
course
None

23 (9.66)

19 (7.45)

1 (0.42)

No answer

31

26

238

255

237

Educational
Attainment

Total
ADZU/TM Survey, 2004

Community Level (Micro) : Ponduhan, Siasi, Sulu

Badjao Community
Educational Attainment of Adults
Educational Attainment
Elementary Level
College Level
None

Frequency
6
1
282

Percentage
2.1
0.3
97.6

Educational Attainment of Youth

All youth (100%) are not in school at present. Only five (5) or
7% of the total youth population of 74 had gone to school and
their highest level of attainment was elementary grade.
Source: Social Action Center AVJ, Baseline Survey-Ponduhan, June 2004

Human Development Indicators

Population and Health Status
Indicators

Basilan

Sulu

Tawi-tawi

ARMM

RP

332,828

619,668

322,317

2,412,159

78M

Life expectancy at Birth

60.2

52.3

50.8

57.4

69

Probability at birth for not

surviving to age 40 cohort

18.1

28.6

29.7

63

36

Gabon 60
Bolivia 62

55.9

29.9

11.4

61.6

87

Niger 20
Uganda 50

Population (2000)

Infant Mortality
Families with Access to water
(APIS, 1999; WDI, 2000; HDR, 2002)

Intl

Haiti 52.6
Congo 51.3

8.9

BASULTA SAMPLE SURVEY

SOURCES OF DRINKING WATER (Mostly mainland barangays):

Basilan
%

Sulu
%

Tawi-Tawi
%

TOTAL
%

Piped water/
Faucet

42.9 (39)

50.7 (38)

13 (12)

35.5

Deep Well

20.9 (19)

37.3 (28)

40 (36)

32.7

32 (29)

10.7

16.4 (15)

1.3 (1)

7 (6)

8.2

Mixed

6.6 (6)

9.3 (7)

7 (6)

7.6

Spring

11.0 (10)

1.3 (1)

4.1

2.2 (2)

1 (1)

1.1

Rain
Open Well

No Answer
ADZU/TM Survey, 2004

The most serious problem

of people in small island,
coastal and water (on-stilts
on the sea) communities is
freshwater. In the big
islands, people source
water from springs, deep
wells & government water
system. But in small
communities, people
depend on the rain & from
individuals selling stored
rainwater.

BASULTA SAMPLE SURVEY

Causes of Morbidity (Mostly mainland barangays):

35
30

Malaria

25

Skin diseases
Diarrhea

20

Gastroenteritis

15

Measles

10

Amoebiasis
ARD

5
0
Basilan

Sulu

ADZU/TM Survey, 2004

Tawi-Tawi

Total

WHAT EXPLAINS THE

SITUATION?

Focus Group Discussions

1. POOR GOVERNANCE AND PARTICIPATION

Problem of governance, graft and corruption

Non-use of and private appropriation of IRA
funds among officials came out as a serious
concern among CS respondents
Many local government offices do not provide
services or even hold regular office - from the
local chief executive down to rank and file.
Emphasis on infrastructure rather than social
services

Focus Group Discussions

1. POOR GOVERNANCE AND PARTICIPATION

Local legislation has become an exercise in

buying legislators signature and political
endorsement as sessions never take place

Some civil service positions are unofficially

bidded out making officials treat positions as
investments or source of regular income and
not public service, or even work.

Focus Group Discussions

1. POOR GOVERNANCE AND PARTICIPATION
LGUs have become employment agencies for family,
and clan. Nepotism and corruption are not necessarily
viewed as negative practices because the Datu system is
now superimposed onto the system of local government.

In many cases, the LCE is also their datu. Given the

traditional Moro view that land is non-alienable and held
in trust by the Datu gives the latter continuing power
over his subjects and kinsmen.

Focus Group Discussions

2. LIMITED PARTICIPATION
Effective participation in programs and projects
by civil society is limited.
Low quality of participation:
- government organized groups
- clan-based
- beneficiary groups
Lack of Social Capital and Network

Quality of Participation in Civil Society

Organization
80

76.47

Attend meetings

68.75

61.36

66.67

60
40

22.73

23.53

15.91

20

18.75
12.5

21.51
11.83

0
Basilan

Sulu

Taw i-Taw i

Nature of participation

Total

Participate in
policy/decisionmaking process
Both

BASULTA SAMPLE SURVEY

Types of development projects implemented in BaSulTa during

the last 10 years
Basilan (%)

Sulu (%)

Tawi-Tawi (%)

Health Services

4.1

9.2

6.1

Micro-enterprise

4.5

19.0

7.9

Literacy

5.6

15.5

12.1

Community organizing

2.3

7.7

0.9

Water

4.9

2.8

7.9

Solar Energy

0.8

0.7

6.5

Infrastructure

72.6

32.4

44.9

Training

2.3

7.0

2.3

Others

3.0

5.6

11.2

Type

Distribution of projects implemented in BASILAN

Health

Microenterpri
se

Literacy

CO

Water

NGO

Church

Type of
Agency

Solar
Energy

Acade
me
LGU

NGA

PO
TOTAL

10

4
11

12

15

13

Infra

Trng General

Others

Total

11

43

174

205

193

266

Distribution of projects implemented in SULU

Type of
Agency

NGO

Health

Microenterp
rise

Literacy

Church

CO

Infra

Trng General

Others

25

18

15

LGU

NGA

11

Others

22
1

10

27

47

1
13

27

Total

7
3

TOTAL

Solar
Energy

Academ
e

PO

Water

22

11

1
4

46

10

142

Distribution of projects implemented in TAWI-TAWI

Type of
Agency

Health

NGO

Microenterpr
ise

Literac
y

CO

Church

Water

Solar
Energy

Infra

Trng Genera
l

Academ
e
LGU

47

NGA

19

10

22

PO

13

17

26

TOTAL

17

21
14

96

Others

Total

6
2

10

71

89

39

24

214

HH Quality of Participation and Opinion on Projects Implemented

PROVINCES

Consultations
conducted in
Community

HH participation

HH heads
Perception on
receiving
adequate basic
services from
government

BASILAN

54.94%

41.76%

32.97%

SULU

52.7%

29.7%

33%

TAWI-TAWI

76.66%

76.67%

12.22%

BASULTA SAMPLE SURVEY

Projects planned by LGUs & NGOs in BaSulTa

Basilan (%)

Sulu (%)

Tawi-Tawi (%)

Health Services

9.3

15.6

7.4

Micro-enterprise

4.7

13.0

15.7

Literacy

14.0

16.9

6.5

Community Organizing

14.0

2.6

2.8

Water

16.3

6.5

18.5

Solar Energy

2.6

0.9

Infrastructure

18.6

19.5

28.7

Training

14.0

13.0

4.6

Others

9.3

10.4

14.8

Type

BASULTA SAMPLE SURVEY

Assessment of HH heads on community needs (Ranked):

NEEDS

Basilan

Sulu

Tawi-Tawi

Livelihood/
employment

Health & nutrition

Education

Housing

Infrastructure

Water & sanitation

Focus Group Discussions

3. LACK OF PEACE AND ORDER

Armed conflict
Proliferation of guns, armed private armies
(no rule of law)
Kidnapping and extortion; Piracy in the seas
Perceived threat of terrorism (Abu Sayyaf)
Family grudges and political feuds (Rido)
Drug addiction/Alcoholism

Focus Group Discussions

3. LACK OF PEACE AND ORDER

Pervasive biases and prejudices at grassroots hinder

the rebuilding of social cohesion (ethnicity-based
social & political hierarchy, exploitative traditions &
practices)

Focus Group Discussions

4. LOW INVESTMENTS AND LIMITED ECONOMIC
ACTIVITY

Peace and Order Problem limits mobility of

people and exchange of goods
Lack of support facilities (electricity, water
and communication) and post-harvest facilities
Bureaucracy : Problem in securing business
permits; Lack of business incentives
No direct shipping vessels from major trade
centers for agri and marine products.

MAJOR CHALLENGES TO HUMAN SECURITY

Local Governance
Participation
Peace and Order
Basic Services
Income
Education
Health
Environmental Protection

WHAT CAN BE DONE?

RECOMMENDATIONS
1. ON GOOD GOVERNANCE AND PARTICIPATION
How can transparency, accountability, and predictability
be exercised in the area?

Church, civil society and local government engagement

is necessary . Increase capacity of civil society for
active engagement.
Capacity building with emphasis on values formation
for attitudinal change for civil servants.
Conduct of training on the disbursement of IRA
Institutionalization of a culture-sensitive system of
accountability

RECOMMENDATIONS
1. ON GOOD GOVERNANCE AND PARTICIPATION
How can transparency, accountability, and predictability
be exercised in the area?

Train and transform local leaders to developmentoriented managers.

Strong leadership issue should be addressed. Role of the
Datu and other traditional leaders such as the Ulama
should be considered.
Enhancement of peoples political participation by
involving them in identification, planning, monitoring and
evaluation of projects.

Recommendations of households on how to improve implementation of projects by area

Recommendations

Basilan

Sulu

TawiTawi

1. Consultation/involvement of the community before

implementing the project

10

21

2. Coordination with barangay officials

3. Transparency in project implementation

4. Transparency in the expenditure of the Internal Revenue

Allotment (IRA)

20

6. Project must respond to the needs of the people

10

7. Community and local officials must work together for the

improvement of the community

11

8. Project should be implemented by the community and not

by the government

9. Financial assistance should reach the community in full

10. Donor should let the people implement the projects for
successful completion

11. NGO to implement the projects

12. Projects implemented in the ARMM should be equally

distributed among the provinces

13. Everyone should give full support

14. Operation and maintenance should be the peoples

responsibility

15. Municipal government take the responsibility in project

implementation

5. Proper monitoring and implementation

2. RECOMMENDATIONS ON PEACE

Promote a culture of peace by integrating into

development programs.
Promote inter-faith dialogue at grassroots level.
Make a comprehensive assessment of the
militarys presence and role in peace and
development .
Develop community leaders for peace advocacy
and policy reforms.

RECOMMENDATIONS
3. ON ECONOMIC ACTIVITY TO ENHANCE BUSINESS
AND INDUSTRY

Improve the support facilities such as water, power,

communication, airports and seaports.

Appropriate legislation should be passed/enforced

specially those supportive to business

Make credit facilities available.

Regulate fees in the seaport.

Ensure security of business operators.

RECOMMENDATIONS
3. ON ECONOMIC ACTIVITY TO ENHANCE BUSINESS
AND INDUSTRY

Support for industries based on fishing and agricultural activities

such as rice milling, copra processing, abaca production, and semiprocessed fish and shell products manufacturing.
Support for cottage industries such textile weaving, boat building,
mat making and local food processing.
Support for community-based entrepreneurship programs.
The establishment of a semi-processing plant (5th level) National
Seaweeds Institute is proposed.
Set up post-harvest facilities such as cold storage, and canning
facilities.

RECOMMENDATIONS
3. ON ECONOMIC ACTIVITY TO ENHANCE BUSINESS
AND INDUSTRY

Training on new farming and fishing technologies and

processing of raw products, such as cassava, seaweeds,
fish, etc.
The opportunity provided by BIMP-EAGA should be
explored through lobbying for a presidential permit for
commercial trading route with BIMP-EAGA. Barter
trading/Freeport be legalized.
Incentives to the Regional Economic Zone Authority
to attract more investors.

RECOMMENDATIONS
4. ON BASIC SERVICES: EDUCATION AND HEALTH
All stakeholders need to re-examine their roles,
programs and objectives towards collectively
working for long-term human security.
Networking of civil society groups should be
established.
Establish strong coordination and synchronization
of development efforts.
Develop people as active participants and not
passive recipients of development.

Special Concerns and Recommendations:

Muslim-Christian Relations
Conduct more inter-faith dialogue at the grassroots level.
Women and Children
Address the needs of women and children who are most
affected and marginalized by the armed conflict in the
area.
Internally Displaced Persons (IDPs)
Provide an integrated program for the sustenance, return
and rehabilitation of the IDPs who flock into the capital
towns.
Youth
Implement programs to transform youth to become leaders
and productive citizens of their respective communities.