CORDI 101: FINAL GROUP REPORT
READING 07: DISCOURSES ON CORDILLERA AUTONOMY
The Cordillera Administrative Region (CAR), located in the northern part of the Philippines' Luzon island,
is a unique region composed of six provinces: Abra, Benguet, Ifugao, Kalinga, Mountain Province, and
Apayao, along with the chartered city of Baguio.
AMERICAN PERIOD (1898–1946)
Under American rule, the Cordillera region saw the establishment of schools and infrastructure. The
Americans introduced the concept of a chartered city, which led to the creation of Baguio in 1909. Baguio
became a key administrative center and summer capital of the Philippines due to its cool climate.
POST- INDEPENDENCE
After World War II, the Cordillera continued to develop but remained relatively isolated compared to other
regions in the Philippines. However, issues like land rights and cultural preservation became prominent as
modernization encroached upon traditional lands.
- Philippine Commission created the Mountain Province with seven sub-provinces
- - Apayao, Benguet, Bontoc, ifugao, Kalinga, Amburayan and Lepanto
1920
- Amburayan and parts of Lepanto were taken away during this time
MARTIAL LAW ERA
After the declaration of martial law by Ferdinand Marcos in 1972, the region became the focus of
militarization as a result of local objections to the government's push for the Chico River Dam Project near
Sadanga, Mountain Province and Tinglayan, Kalinga.
1973
- Cordillera Provinces separately joined to Region 1 & 2
- - Kalinga-Apayao and Ifugao with the Cagayan Valley Provinces
- - Abra counted as an Ilocos Province at the time due to its parceling of land from the Spanish Colonial
Period
Frustrated by the project delays caused by the opposition, Ferdinand Marcos issued Presidential Decree
no. 848 in December 1975, constituting the municipalities of Lubuagan, Tinglayan, Tanudan, and Pasil
into a "Kalinga Special Development Region" (KSDR), in an effort to neutralize opposition to the Chico IV
dam.
Empowered by martial law to conduct warrantless arrests, the 60th PC Brigade had arrested at least 150
locals by April 1977, accusing them of supposed subversion and of obstructing government projects, and
various other offenses such as boycotting the October 1976 Constitutional Referendum. Individuals
arrested included tribal papangat (leaders/elders), young couples, and in at least one case, a 12-year-old
child. : 9 By December 1978, parts of the Chico IV area had been declared "free fire zones", no-man's-
land areas where the army could freely shoot people without permits like animals.
On April 24, 1980, Marcos-controlled military forces assassinated Macli-ing Dulag a pangat (leader) of the
Butbut tribe of Kalinga. The assassination became a watershed moment, marking the first time the
mainstream Philippine press could be openly critical against Marcos and the military, and building up a
sense of Igorot identity that eventually led to Cordillera autonomy.
1981
- National Economic Development Authority (NEDA)
- - NEDA parceling of the Provinces were met with disputes and disagreements
- - Call for creation of a separate region for the Mountain Provinces due to a major difference between the
commonality of the highland and lowland provinces
1984 & 1985 Congress of the CPA (ConCom)
- Further push and negotiations for Cordilleran Autonomy
After the end of the Marcos administration due to the 1986 People Power Revolution, the succeeding
government under President Corazon Aquino secured a ceasefire with the main indigenous armed group
in the Cordilleras, the Cordillera People's Liberation Army led by Conrado Balweg. The Aquino
government made a sipat or indigenous treaty, which would be known as the Mount Data Peace Accord,
with the CPLA on September 13, 1986, ending hostilities.
People Power Revolution
- Deposition of Marcos and the installation of Cory Aquino had repercussions on the Cordilleran
Autonomy Debate and ongoing negotiations with, at the time, President Ferdinand Marcos
1986
- Invitation for Cory Aquino discussing Autonomous Region and Igorot rights from its prior violations by
the past regime
- - discussion was approved less than two weeks after the invitation and aimed to discuss further the push
for an Autonomous Cordillera
- CRAG (Cordillera Regional Autonomous Government)
- CPLA broke off from NPA and promulgation of EO 220
- - to eventually establish CPLA as the proposed "peacekeepers" or militant organization based and for
the Cordillera
- A supposed 3 year Cordillera Administrative Region for integration into the country as an Autonomous
Region after the administrative abolishment
- - rejection of CAR (CBAd seats comprised majority of the proposed officials & CPLA peace keepers was
questioned)
CREATION OF THE REGION (1987)
The Cordillera Administrative Region was officially established on July 15, 1987, through Executive Order
No. 220 signed by President Corazon C. Aquino. Its creation was part of efforts to recognize the unique
cultural identity of the region and provide administrative autonomy. The establishment of CAR aimed to
accelerate the socio-economic development of the area while preserving the distinct culture of its
indigenous peoples.
The provinces of Abra, Benguet and Mountain Province (of the Ilocos Region), and Ifugao and Kalinga-
Apayao (of the Cagayan Valley) were annexed as part of the newly created region. Cordillera
Administrative Region is the revival of the U.S. political division of Mountain Province, with Abra which
was part of Spanish province of Ilocos. Nueva Vizcaya & Quirino were not included in the region despite
having an Igorot majority at the time.
PUSHING FOR AUTONOMY
Several attempts at legalizing autonomy in the Cordillera region have failed in two separate plebiscites.
An affirmative vote for the law on regional autonomy is a precondition by the 1987 Philippine Constitution
to give the region autonomy in self-governance much like the Autonomous Region in Muslim Mindanao
(now the BARMM) in southern Philippines.
- The first law Republic Act No. 6766, took effect on October 23, 1989 but failed to muster a majority vote
in the plebiscite on January 30, 1990.
- - most Cordilleran Officials being either conservative or satisfied with the status quo at the time
(Administrative Region)
- - Government Officials not accepting the Cordilleran Proposal as all encompassing of the populace of
the Region
On February 14, 1995, Kalinga-Apayao, one of the five provinces of the region was split into two separate
and independent provinces of Apayao and Kalinga with the enactment of Republic Act No. 7878.
- The second law, Republic Act No. 8438 passed by Congress of the Philippines on December 22, 1997,
also failed to pass the approval of the Cordillera peoples in a region-wide plebiscite on March 7, 1998.
At present, a third organic act of the Cordillera is in the offing supported by the Cordillera Regional
Development Council.
MODERN ERA
CAR remains a culturally rich and economically vital region, with its economy largely based on agriculture,
tourism, and mining. The fight for full autonomy continues to be a central issue among its leaders and
people, who seek recognition of their unique history and traditions.
This blend of resistance, cultural preservation, and modernization makes the Cordillera Administrative
Region a fascinating and significant part of the Philippines.
KEY POINTS
1.) A more practical alternative is the regularization of the Cordillera region as an
administrative unit.
- The Cordilleras got used to being an administrative region due to Highlanders mostly simple and
conservative nature of participation (more than 3 years under administrative distinction) and
- The CPA and CPLA (Balweg Group) pushing for autonomy but parallel in its cooperation to gain
supporters
- This alternative could strengthen local autonomy, enabling improved governance and development that
is specifically suited to the region's distinct geographic, cultural, and economic needs. For indigenous
groups in particular, it could enhance infrastructure, cultural preservation, and resource management. It
might also encourage peace and political stability by providing localized power. However, there are
obstacles like overcoming political opposition, making sure there is enough money, and encouraging
cooperation with other regions. Overall, this might work effectively to meet the specific needs of the
Cordillera.
2.) The law ought to provide clearly for an autonomous region, but R.A. 8438 is seriously
flawed and unconstitutional.
- Unclear and Unfair rejections of Cordilleran Autonomy and it's continuation of being an Administrative
Region
- Immediate Requirement of a majority vote or show of hands within the Cordillera as a whole.
- The analysis reveals that while the 1987 Constitution mandates the creation of an autonomous region,
the discourse surrounding Cordillera autonomy has been plagued by disjuncture, with various actors
operating on different planes and rarely addressing the core issues. The proposed Organic Acts,
particularly R.A. 8438, have been criticized for failing to adequately address the unique cultural and
historical context of the Cordillera, instead relying on a superficial understanding of indigenous practices
and customary law.
The importance of this study lies in its call for a re-framing of the discourse on Cordillera autonomy,
shifting the focus away from structural engineering and towards the identification and elaboration of the
distinctive characteristics that define the Cordillera region. This requires a deeper understanding of
indigenous land rights, resource management, and conflict resolution practices, as well as a recognition
of the dynamic nature of these traditions in the face of modernization and external influences.
A limitation of this study is its reliance on secondary sources and its focus on a specific historical period.
Further research is needed to explore the role of contemporary media in shaping public perceptions of
Cordillera autonomy, as well as to examine the impact of recent developments, such as the Indigenous
Peoples Rights Act (IPRA) and the ongoing struggle for land rights and resource control.
Ultimately, the realization of Cordillera autonomy requires a genuine commitment to understanding and
respecting the distinctive cultural heritage and social structures of the region. This necessitates a shift in
the discourse, moving beyond superficial political maneuvering and towards a deeper engagement with
the substantive issues that define Cordillera identity and aspirations for self-determination. Only then can
the Cordillera region truly achieve its rightful place within the Philippine polity, a place where its unique
cultural heritage is valued, protected, and empowered.
3.) Any law is in utile so long as it regards the region as a "resource base" for
exploitation by the elites, and so long as other laws (e.g., Indigenous People's Rights Act
[IPRA], Mining Act) contravene the objective of genuine regional autonomy.
- Corruption through unfair objections for the Region's Autonomy
- The Cordilleras is more accessible by the Philippine Government than the BARMM, thus allows smooth
access for it's resources at the time
- - Resources that the government would deem as important enough and would benefit them to put the
area under its supervision
- The Mining Act allows foreign companies to extract the mineral resources of the Cordillera region,
potentially leading to environmental degradation and economic displacement of local communities.
- Meanwhile, the IPRA, which was meant to protect the rights of indigenous peoples to their land, is
criticized by the CPA for undermining these rights by giving the government and corporations more
control over indigenous lands, often at the expense of the local communities.
- The CPA also objects to the government’s proposal for an Organic Act, which is intended to grant more
autonomy to the Cordillera region. According to the CPA, however, this act is primarily aimed at
facilitating resource extraction, and it would serve the interests of powerful elites rather than truly
empowering the local people. The 35-billion-peso subsidy associated with the act is seen as a means to
fund infrastructure projects that will improve access to natural resources, but this is viewed skeptically as
a way to benefit big business rather than the local communities.
4.) The law provides for new governmental structures, entailing additional offices
available for electoral contests among interested politicians.
- Strict and Unclear Guidelines for its implementation
- The implementation of R.A 8438 would provide a new governmental structures in the Cordillera
Region , where both supporters and non-supporters agree that these law will produce more opportunities
for those interested politicians to compete in elections . Congressman Vergara stated that autonomy
would create at least 6 new vacant position that can be used to help politicians who are currently seeking
positions with the accommodation of the LAKAS members, in order to prevent conflict . He also
mentioned that the debate on Cordillera regional autonomy was stuck in a state of disjunction ,where
each vocal, interested parties focusing solely on their own perspective without considering the
perspectives of other parties involved which hinders the real progress of the project . And he sees that
these regional consultations was a major obstacle to the project of regional autonomy .
SUMMARY: Administrative Government VS Autonomous Government
As a Centralized Authority, power is concentrated on the Philippine Government. An
administrative region has a clear chain of command, with decisions flowing top-down. Due to
centralization of power, local or regional bodies have limited autonomy, primarily implementing
decisions made at the central level which has led to many conflicts with the Cordillera Region.
Priority on standardized procedures and uniform policies has led to many disputes with the
Local Cordillerans. Among these conflicts are damming projects, land reforms, deforestation
and illegal lumbering, as well as the displacement of locals and destruction of their cultural
heritage artifacts and communal sites. The push for Cordilleran Autonomy has many benefits for
the Region, however, has been met with opposition and objections against the higher political
powers and also the region's people themselves. If the Autonomous Region is implemented, it
can govern it's own lands and people while taking into account ALL the Communal Rights and
Traditions that the region has had since time immemorial. An Autonomous Region has the
authority to make decisions on matters within their jurisdiction. This Diverse Decision-Making
means that local bodies can tailor policies to specific needs and circumstances which is
beneficial for a very Culturally Diverse region like the Cordilleras and it's Indigenous People.
The push for Autonomy in the region places an emphasis on responsiveness. This would
ensure that Regional Governors would be able to aim to be more responsive to local needs and
preferences without seeking constant approval from the higher level Governing Bodies.
WORD COUNT: 248
NOTE: All the members contributed in the making of the report.
ASSIGNMENT: GROUP READING QUESTIONS
1.) -
FREE, PRIOR AND INFORMED CONSENT
- Cordillera IPs have long since held moral principles they follow that impact their decisions and
beliefs about their rights. This in turn holds true to making decisions through peace pacts, and
meetings betweens elders that impact their choices and approval through informed consent.
(Reading 2 - Community “ili”)
(Reading 3 - “Jocano” Philosophy)
ANCESTRAL DOMAIN
- Ancestral domain holds deep cultural and spiritual meaning for indigenous peoples, often
associated with sacred sites, burial grounds, and traditional practices.
(Reading 1 - Rooted in the Land, Nuture Spirits)
CULTURAL INTEGRITY
- Indigenous People of the Cordilleras have deep rooted moral principles in their way of life that
encompasses honesty, sincerity, and doing the right thing through ancestral traditions and the
guidance of coexisting with spiritual beings/spirits of the land. Cordillerans with these moral
principles have integrity, are trustworthy, reliable, and committed to their values.
(Reading 3 - Karangalan and Paninindigan)
SELF-GOVERNANCE
- The deep rooted moral principles discussed in cultural identity guide the Indigenous Peoples
ways and forms a sense of community and understanding between tribes and tribe members
leads to a unique but solid form of self-governance.
(Reading 2 - Community and Social Constructs)
ECONOMIC DEVELOPMENT
- Spirits being regarded as entities that are part of, and protect the land make us care for our
environment. This in turn provide us with water, food, clothing, as well as the livelihood that we
benefit from sale and trade.
- Community and the deep rooted Traditions of production within the Cordilleras also takes part
in the economic development of the region
(Reading 2 - Community)
(Reading 1 - Taking Care of the Environment)
SOCIAL JUSTICE
- Through these proud traditions, the strength of the Cordilleran IPs tight knit community
advocates the protection of their Cultural Identity and Strengthtens their commitment to their
rights and social justice.
(Reading 3 - Karangalan and Paninindigan)
ENVIRONMENTAL PROTECTION
- It is believed that in this place, there are unseen beings, who are found in the undisturbed
forested lands. It is a responsibility of humans to see to it that these unseen beings are also
cared for, because they can be violent, thus sometimes, someone would get sick, if not,
someone gets hurt in an accident, or a life may be lost.
- Indigenous lands are known for forests and biodiversity, where wildlife is allowed to thrive, and
where the unseen spirits, too, find their dwelling place. Not only the people, but also the unseen
spirits care for the land. Sometimes, when humans forget their responsibility to respect the land,
it is these unseen beings that send messages and signs, to remind the people of the right way
to relate to the land. While out walking in the forest, one must be sensitive to the presence of
unseen beings, who reside there. It is common for people to ask permission when passing by a
spring or harvesting in the wild, and saying a prayer of thanksgiving, as they gather the fruit of
the land.
(Reading 1 - Taking Care of the Environment, Spirits, Beings of Nature)
(Reading 2 - Community, “ili”, Peace Pacts)
(Reading 3 - Paninidigan)
(Reading 4 - Animism)
2.) - For the Cordillera Region, thr better Development Model would be the Self Determined
Model. Human Rights Based Approach emphasizes human rights as the center for its
efforts, empowering people regardless of background or circumstance. The problem with
using a Human Rights based approach however, is its lack of regard towards the proud
culture of the Cordillerans. This is because Human Rights is enshrined in international
and domestic frameworks that, at times, go against the culture of Indigenous People of
the Cordillera. Human Rights Based Development also relies on governments and it's
duty bearers to legally respect, protect, and fulfill human rights but has been used as an
objection towards actual Cordilleran Autonomy. The better option, Self Determined
Model, encompasses all of the human rights based developments upsides, however,
also gives respect towards the Cordillerans as a people and their cultural traditions. In
the current case with our government, using human rights based approach is a positive
in essence but is used by the heads of state, who are indifferent to the pleas and
ideologies of Cordillerans, as tools of exploitation. It is wrong to view self determined
approach as against modernization or abstaining from existing as one country through
its subsequent autonomy.
3.) - The Global Development Model is unsustainable for the development of Cordillera and
its people because despite its upsides, it has more downsides in its implementation in a
region like the Cordilleras. Though still developing, the Cordillera is not so
underdeveloped that it would need to implement a model for its progress and
advancement. Another downside is the Global Development Model's eurocentric bias
and reliance on western style adaptations that would conflict with the Cordillerans Rich
Cultural Traditions and Simple Lifestyle. The Global Development Model is also idealistic
and difficult to measure while also being economically intensive and needs a huge
investment to implement. The Global Development Model is also an excellent way for
modernization but hugely disregards the protection of the environment which is innately
against traditional cordilleran customs. At it's core, the Global Development Model
advocates for modernization but ignores the area of implementation's customs and
traditions in pursuit of progress and advancement. Examples of modernization projects
have already caused issues within the Cordilleras through damming projects, forest
clearance, and large scale, foreign company lead mining projects which are in line with
the enforcement of the Global Development Model. Cordilleran pushback will always
exist against modernization enforcement unless it is in line with the people's conditions
of cultural enrichment, and environmental sustainability and protection.
