General information
Part of Conflict: Philippines: Mindanao
Date of first stated goals of incompatibility: 1981-12-31
Comment on date of first stated goal of incompatibility: Salamat Hashim wrote in 1981 a program for "Jihad in the way of Allah," claiming that in the years 1981-2000 the organization should dedicate itself to Islamisize all parts of Bangsamor life, build up military strength, become self-reliant, and strengthen the organization to be able to pursue an armed fight for an independent Islamic state in Mindanao. He was then still concerned with the "new MNLF" (formed 1978) that in 1984 became the MILF.
Date of first use of armed force: 1986-01-01
First Battle Related Death: 1990-01-27
Comment on First Battle Related Death: Clashes occurred on this date between government troops and MILF in North Cotabato province. In 1989, there were accusations that MILF members cooperated in joint attacks with MNLF that killed 43 people (see MNLF 1989).
Date when dyad reached 25 battle releated deaths: 1990-02-02
Comment on date when dyad reached 25 battle related deaths: About 38,000 people have fled their homes to escape fighting between government troops and Moslem guerrillas in the southern Philippines, which has claimed 29 lives. The Office of Civil Defense said the victims were killed in a week of fighting in the end of January 1990 in Pikit town, North Cotabato province south of Manila, and in neighbouring Maguindanao province. It did not say how many of the fatalities were civilians and combatants.
Conflict issues
Conflict Goal Issues: The Moro Islamic Liberation Front (MILF) was a rebel group claiming to represent the minority Muslim populations in the southernmost Philippine island group of Mindanao. The MILF splintered from the more nationalist Moro National Liberation Front (MNLF), and advanced an ideology of radical political Islamism. MILF was formed as its leadership – former members of the MNLF – were unsatisfied with their predecessor’s compromises on independence demands and the lack of centralization of political Islam. As such, the first conflict goal issues coded were calls to change the judicial system and institute an Islamic state throughout Mindanao. Salamat Hashim, the group’s founder, stated in his 1985 book The Bangsamoro Mujahid that their “duty is to establish a just social order under the stewardship of leaders adhering to the Qur’an and Sunnah.” MILF initially stated that “only full independence…can solve the problem of Mindanao” and was opposed to elections determining the scale of autonomy under the peace deal with the MNLF.
The MILF, following the pattern laid by its predecessor, vacillated between calls for autonomy and independence. As early as 1996-1997, MILF began “setting aside” a narrow demand for independence. MILF made it clear that independence was their preference, but they were willing to consider versions of autonomy that are not “limited.” Throughout the conflict, MILF made occasional maximalist independence demands, followed by later calls for “real” autonomy. It is notable that MILF made calls for referendums on independence in the early 2000s, ostensibly after seeing the success of this demand in East Timor. In 2008, the MILF dropped its independence demand, and focused on “genuine autonomy for the Bangsamoro people.”
The principal conflict goal issues for MILF outside of self-determination relate to religious/cultural rights, land rights, the judicial system, and revenues from Mindanao’s rich natural resources. Each of these conflict issues were coded consistently throughout the conflict. MILF wanted an Islamic system of government “with no compromises on religious principles” that could exploit what they considered their own natural resources on their own lands.
Conflict Dynamics Issues: The initial conflict dynamic issues raised by the MILF in the late 1990s concerned the atrocities and abuses committed by the Philippine Government against the minority Muslim populations in Mindanao. MILF leadership condemned the “systematic design to liquidate Islam and to destroy the Islamic identity of the Bangsamoro Muslims.” They reference the group migration of non-Muslim populations to their homeland.
As the conflict developed, MILF demanded an increase in foreign involvement with mediation and international monitoring and support. In the early to mid 2000s, MILF explained that “what they highly need now is the interference of a credible foreign body in the peace process.” The MILF wanted an International Monitoring Team to monitor ceasefires with the government, and foreign mediators – principally Malaysia – to act as third parties. On several occasions, the MILF sought political support from the Organization of Islamic Countries (OIC), largely with no success. The principle conflict dynamic issues coded related to atrocities and abuses and a desire for international involvement to help monitor or mediate the conflict.
Conflict Resolution Issues: The first conflict resolution issues raised by the MILF concerned their opposition to the MNLF’s 1996 peace agreement with Philippine government. This issue was raised in each of the four years following the agreement. The MILF also called for a ceasefire with the government and declared their willingness to enter negotiations.
Conflict resolution issues are coded consistently throughout the coding period. The MILF frequently called for ceasefires, followed by calls for the Philippine Government to abide by ceasefires. The group called for negotiations in 13 issue-years. In 2015-16, MILF demanded that the recently agreed peace deal be implemented after the Philippine legislature failed to codify the agreed autonomy framework in the years prior.
The central conflict resolution issues are calls for negotiations and ceasefires, as well as calls for the Philippine Government to abide to ceasefires and peace agreements. MILF leadership stated “The Philippine government doesn't know how to respect an agreement” and that inaction would "kill real progress that the whole country is entitled to."
Type of conflict issues: *Conflict Goal Issues: * Autonomy, Basic needs, Change judicial system, Civil rights, Constitutional issues, Corruption, CPS: Islamic state, Cultural rights, Economic reforms, Hold elections, Independence, Land reforms, Opposition to elections, Protection of cultural heritage, Protection of natural resources/the environment, Public services, Referendum, Religious rights, Restructure police forces, Revenues from natural resources
*Conflict Dynamics Issues: * Atrocities and abuses, Collective targeting: ethnic, Collective targeting: religious, DFI: Removal of foreign mediator, DFI: Removal of foreigners, IFI: Foreign mediator, IFI: Humanitarian aid, IFI: International court/tribunal/investigation, IFI: International monitoring, IFI: Military intervention/foreign forces, IFI: Political support, IFI: Recognition, IFI: Support from diasporas/foreign fighters, Release of prisoners, Return of refugees/IDPs
*Conflict Resolution Issues: * Accountability/prosecution/investigation, Amnesties, Call for ceasefire, Call for implementation/abiding to ceasefire, Call for negotiations, Compensation/restoration, DDR issues, Opposition to negotiations, Opposition to peace agreement, Peace agreement implementation, Structure of negotiations
Annual information
This section contains annual information systematically collected by the UCDP.
1981
| Estimated Fatalities | |
|---|---|
| High | 0 |
| Best | 0 |
| Low | 0 |
Secondary Warring Support:
Side A (Government of Philippines): n/a
Side B (MILF): n/a
1990
| Estimated Fatalities | |
|---|---|
| High | 77 |
| Best | 77 |
| Low | 77 |
Secondary Warring Support:
Side A (Government of Philippines): n/a
Side B (MILF): n/a
1991
| Estimated Fatalities | |
|---|---|
| High | 0 |
| Best | 0 |
| Low | 0 |
Secondary Warring Support:
Side A (Government of Philippines): n/a
Side B (MILF): n/a
1992
| Estimated Fatalities | |
|---|---|
| High | 0 |
| Best | 0 |
| Low | 0 |
Secondary Warring Support:
Side A (Government of Philippines): n/a
Side B (MILF): n/a
1993
| Estimated Fatalities | |
|---|---|
| High | 0 |
| Best | 0 |
| Low | 0 |
Secondary Warring Support:
Side A (Government of Philippines): n/a
Side B (MILF): n/a
1994
| Estimated Fatalities | |
|---|---|
| High | 121 |
| Best | 104 |
| Low | 104 |
Secondary Warring Support:
Side A (Government of Philippines): n/a
Side B (MILF): n/a
1995
| Estimated Fatalities | |
|---|---|
| High | 0 |
| Best | 0 |
| Low | 0 |
Secondary Warring Support:
Side A (Government of Philippines): n/a
Side B (MILF): n/a
1996
| Estimated Fatalities | |
|---|---|
| High | 136 |
| Best | 135 |
| Low | 135 |
Secondary Warring Support:
Side A (Government of Philippines): n/a
Side B (MILF): n/a
1997
| Estimated Fatalities | |
|---|---|
| High | 275 |
| Best | 201 |
| Low | 161 |
Secondary Warring Support:
Side A (Government of Philippines): n/a
Side B (MILF): n/a
1998
| Estimated Fatalities | |
|---|---|
| High | 38 |
| Best | 38 |
| Low | 38 |
Secondary Warring Support:
Side A (Government of Philippines): n/a
Side B (MILF): n/a
1999
| Estimated Fatalities | |
|---|---|
| High | 135 |
| Best | 106 |
| Low | 73 |
Secondary Warring Support:
Side A (Government of Philippines): n/a
Side B (MILF): n/a
2000
| Estimated Fatalities | |
|---|---|
| High | 1129 |
| Best | 1055 |
| Low | 1038 |
Secondary Warring Support:
Side A (Government of Philippines): n/a
Side B (MILF): n/a
2001
| Estimated Fatalities | |
|---|---|
| High | 139 |
| Best | 129 |
| Low | 129 |
Secondary Warring Support:
Side A (Government of Philippines): n/a
Side B (MILF): n/a
Peace agreements
Name of peace agreement: Agreement on Peace between the government of the Republic of the Philippines and the Moro Islamic Liberation Front
Date when warring parties signed the agreement: 2001-06-22
Comment of peace agreement: Peace process agreement
"The Agreement on Peace between the government of the Republic of the Philippines and the Moro Islamic Liberation Front" reaffirmed earlier agreements signed between the parties.
The agreement urged the parties to promptly end armed hostilities and to pursue peace talks towards finding a peaceful resolution to the Mindanao problem.
Signatories: For the GRP: JESUS G. DUREZA Chairman, GRP Peace Panel
For the MILF: AL HAJ MURAD EBRAHIM Chairman, MILF Peace Panel
Witnessed by: SAIF AL ISLAM GADDAFI Chairman of the Gaddafi International Foundation for Charitable Associations
Comment of signatories: Dyadic agreement
Comment of Duration: Clashes between the parties continued but both sides stated that they were willing to continue the negotiations. The parties met in October 2001, enforcing the ceasefire but heavy clashes continued. Both sides referred to them as ceasefire violations. Talk continued in January 2002 and on 11 February 2002 they agreed to set up ceasefire teams in at least 11 provinces in the southern island of Mindanao to monitor and record truce violations by combatants from both sides. When direct negotiations were suspended as a consequence of the violence, back door talks continued and none of the parties openly left the agreement. In a joint statement in March 2003 the government and MILF agreed to uphold previous agreements.
Full-text peace agreement
2002
| Estimated Fatalities | |
|---|---|
| High | 146 |
| Best | 129 |
| Low | 129 |
Secondary Warring Support:
Side A (Government of Philippines): n/a
Side B (MILF): n/a
2003
| Estimated Fatalities | |
|---|---|
| High | 901 |
| Best | 692 |
| Low | 574 |
Secondary Warring Support:
Side A (Government of Philippines): n/a
Side B (MILF): n/a
2004
| Estimated Fatalities | |
|---|---|
| High | 48 |
| Best | 30 |
| Low | 27 |
Secondary Warring Support:
Side A (Government of Philippines): n/a
Side B (MILF): n/a
2005
| Estimated Fatalities | |
|---|---|
| High | 54 |
| Best | 39 |
| Low | 37 |
Secondary Warring Support:
Side A (Government of Philippines): n/a
Side B (MILF): n/a
Peace agreements
Name of peace agreement: Consensus Points on the Strands on Concept, Territory Resources, and Governance at TWG level
Date when warring parties signed the agreement: 2005-04-20
Comment of peace agreement: Partial peace agreement
This consensus was part of peace talks in 2005 and built on agreements relating to the Bangsamoro homeland. The parties come to some decisions and agree to make further decisions with regard to questions on territory and resources to the Bangsamoro people. It refered governance issues to a future panel.
With regard to the incompatibility, the agreement continues to recognize the rights to idenity and to move toward addressing the grievances of the Bangsamoro people.
On the question of territory, the agreement demarcates bodies of water and the existing Autonomous Region in Muslim Mindanao to be part of the Bangsamoro ancestral domain and homeland. The parties refer discussion on authority over natural resources to the Panels, as is the question of governance.
Signatories: For the GRP-TWG: Prof. Rudy Rodil GRP-TWG Chair
For the MILF-TWG: Atty. Musib Buat MILF-TWG Chair
Comment of signatories: Dyadic peace agreement signed in Istana Presiden, Chipanas, West Java, Indonesia on 20 April 2005.
Agreement signed without MNLF.
Comment of third parties role in peace agreement: Though not a signatory, Malaysia facilitated the peace process.
Full-text peace agreement
2006
| Estimated Fatalities | |
|---|---|
| High | 29 |
| Best | 16 |
| Low | 16 |
Secondary Warring Support:
Side A (Government of Philippines): n/a
Side B (MILF): n/a
Peace agreements
Name of peace agreement: Joint Statement: Joint GRP-MILF- Technical Working Groups on Goverance of the Ancestral Domain Aspect of the Agreement of Peace of 2001
Date when warring parties signed the agreement: 2006-02-06
Comment of peace agreement: Peace process agreement
The agreement resulted from the 10th Exploratory Talks between the Government of the Philippines and MILF. Parties affirmed agreements from the 9th session having to do with ancestral domain aspect of the 2001 peace agreement. They agreed to submit the decision to their Technical Committees for consolidation.
With regard to the incompatibility, the agreement continues to move toward addressing the grievances of the Bangsamoro people.
Signatories: Government: ACSP Leah C. Tanodra-Armamento, ADG Zenonida Brosas, Atty. Manuel B. Ibanez, Jr.
MILF: Atty, Musib Buat, Prof. Alpha Amirulhadj, Datu Ismail V. Mastura
Comment of signatories: Dyadic peace agreement signed in Port Dickson, Malaysia on 6 February 2006.
Agreement signed without MNLF.
Comment of third parties role in peace agreement: Though not a signatory, Malaysia facilitated the peace process.
Full-text peace agreement
Name of peace agreement: Joint Statement
Date when warring parties signed the agreement: 2006-02-07
Comment of peace agreement: Partial peace agreement
After the 10th round of Exploratory Talks between the Government of the Philippines and MILF, the parties reached further agreement points related to the ancestral domain issue related to the Tripoli Agreement of 2001. Parties reached a consensus on Bangsamoro people's determination of homeland, measures to address grievances, and the right to development ancestral domain and land, economic coopration.
With regard to the incompatibility, the agreement continues to move toward addressing the grievances of the Bangsamoro people.
Signatories: Government: Silvestre C. Afable, JR.
MILF: Mohagher Iqbal
Comment of signatories: Dyadic peace agreement signed in Port Dickson, Malaysia on 7 February 2006.
Agreement signed without MNLF.
Comment of third parties role in peace agreement: Though not a signatory, Malaysia facilitated the peace process.
Full-text peace agreement
Name of peace agreement: Joint Statement (Joint Meeting of the GRP and MILF Technical Working Groups on Resources)
Date when warring parties signed the agreement: 2006-02-07
Comment of peace agreement: Partial peace agreement
Resulting from a meeting of the Technical Working Groups on Resources as part of the peace process between the Government of the Philippines and MILF, this agreement reaffirms and builds on the Consensus Points on Resources of 2005.
With regard to the incompatibility, this agreement provides for acknowledgement of grievances of the Bangsamoro people and continues the process of addresses these issues, namely that of autonomous territory.
The agreement provides for local jurisdiction and states that laws and guidelines in place in the Bangsamoro homeland should remain as such until modified.
Signatories: Government: ASEC Matanog M. Mapandi, Chairman, Dep. Exec. Bir. Ali B. Sangki, Datu Al S. Saliling
MILF: Datu Antonio P. Kinoc, Chairman, Amor B. Pendaliday, Sultan Liwalug B Dimapunung
Comment of signatories: Dyadic peace agreement signed in Port Dickson, Malaysia on 7 February 2006.
Agreement signed without MNLF.
Comment of third parties role in peace agreement: Though not a signatory, Malaysia facilitated the peace process.
Full-text peace agreement
2007
| Estimated Fatalities | |
|---|---|
| High | 54 |
| Best | 49 |
| Low | 49 |
Secondary Warring Support:
Side A (Government of Philippines): n/a
Side B (MILF): n/a
2008
| Estimated Fatalities | |
|---|---|
| High | 546 |
| Best | 297 |
| Low | 297 |
Secondary Warring Support:
Side A (Government of Philippines): n/a
Side B (MILF): n/a
2009
| Estimated Fatalities | |
|---|---|
| High | 345 |
| Best | 318 |
| Low | 312 |
Secondary Warring Support:
Side A (Government of Philippines): n/a
Side B (MILF): n/a
2010
| Estimated Fatalities | |
|---|---|
| High | 3 |
| Best | 2 |
| Low | 2 |
Secondary Warring Support:
Side A (Government of Philippines): n/a
Side B (MILF): n/a
2011
| Estimated Fatalities | |
|---|---|
| High | 86 |
| Best | 83 |
| Low | 83 |
Secondary Warring Support:
Side A (Government of Philippines): n/a
Side B (MILF): n/a
2012
| Estimated Fatalities | |
|---|---|
| High | 1 |
| Best | 1 |
| Low | 1 |
Secondary Warring Support:
Side A (Government of Philippines): n/a
Side B (MILF): n/a
Peace agreements
Name of peace agreement: Government of the Philippines-MILF Decision Points on Principles as of April 2012
Date when warring parties signed the agreement: 2012-04-24
Comment of peace agreement: Partial peace agreement
This agreement sets principles to guide further negotiations. It establishes the need for a new autonomous political entity to replace the current Autonomous Region in Muslim Mindanao and commits to continued negotiations. The parties agreed to power- and wealth-sharing provisions, the creation of a monitoring body, and basic rights for all citizens.
Signatories: Government: Marvic MVF Leonen
MILF: Mohagher Iqbal
Witnessed by: Tengku Dato´Ab Ghafar Tengku Mohamed Malaysian Facilitator
Comment of signatories: Dyadic peace agreement signed in Kuala Lumpur, Malaysia on the 24 April 2012.
Agreement signed without MNLF.
Third parties: Malaysia
Comment of third parties role in peace agreement: Malaysia facilitated the peace process.
Full-text peace agreement
Name of peace agreement: Framework Agreement on the Bangsamoro
Date when warring parties signed the agreement: 2012-10-15
Comment of peace agreement: Partial peace agreement
Peace talks between the Government of the Philippines and MILF in 2012 resulted in the Framework Agreement on Bangsamoro. The agreement establishes Bangsamoro as a new autonomous political entity and the Basic Law as its governing principles. The Bangsamoro government is granted power- and wealth-sharing with the Central Government. An electoral system is called for to establish a ministerial form of government in Bangsamoro, and the core territory and related provisions are agreed upon. Basic rights are established to be ensured by the Central Government and Bansamoro Government. A transition period is outlined for implementation of the agreement.
Regarding the incompatibility, this agreement acknowledges and addresses grievances of the Bagsamoro people and creates a new autonomous political entity.
It is noted that a splinter group from MILF called Bangsamoro Islamic Freedom Movement (BIFM) renounced the peace agreement and clashed with the government on several occasions.
Signatories: Government: Marvic MVF Leonen
MILF: Mohagher Iqbal
Witnessed by: Tengku Dato. Ab Ghafar bin Tengku Mohamed, Malaysian Facilitator
In the presence of:
Benigno Simeon Aquino III, President of the Republic of the Philippines
Dato' Sri Hj. Mohd Najib Bin Tun Hj. Abdul Razak, Prime Minister of Malaysia
Al Haj Murad Ebrahim, Chairman of the Moro Islamic Liberation Front
Comment of signatories: Dyadic peace agreement done and initialed in in Kuala Lumpur, Malaysia on the 12 October 2012. Signed in Manila, Philippines on the 15 October 2012.
Agreement signed without MNLF.
Third parties: Malaysia
Comment of third parties role in peace agreement: Malaysia hosted and served as a mediator when the parties met once a month from January to October in negotiations in Kuala Lumpur. Malaysia also signed the “Framework Agreement on the Bangsamoro” together with representatives from MILF and the Philippine Government during a ceremony at the presidential palace in Manila on 15 October.
Full-text peace agreement
2013
| Estimated Fatalities | |
|---|---|
| High | 3 |
| Best | 2 |
| Low | 2 |
Secondary Warring Support:
Side A (Government of Philippines): n/a
Side B (MILF): n/a
Peace agreements
Name of peace agreement: Annex on Transitional Arrangements and Modalities to the Framework Agreement on the Bangsamoro (FAB)
Date when warring parties signed the agreement: 2013-02-27
Comment of peace agreement: Partial peace agreement
Four annexes to the Framework Agreement on the Bangsamoro (FAB) remained to be hammered out in the beginning of 2013. During the negotiations in February, the first of them was signed. This annex to the Framework Agreement on Bangsamoro provides modalities and arrangements for the transition process. It clarifies composition of the Transition Commission, scope of work, and the extent and limit of powers.
Regarding the incompatibility the agreement provided for the TC to formulate the Basic Law to be implemented in the new Bangsamoro territory. The agreement also provided for the creation of a MILF-led Bangsamoro Transition Authority (BTA), tasked with preparing for the transition to the ministerial government in the Bangsamoro. The BTA was designed to function as an interim Bangsamoro government until a government had been elected in 2016. To monitor the implementation of all agreements, the annex provided for the creation of a Third Party Monitoring Team (TPMT).
Signatories: Government: Miriam Coronel-Ferrer
MILF: Mohagher Iqbal
Signed in the presence of: Tengku Dato' Ab Ghafar Tengku Mohamed, Malaysian Facilitator
Comment of signatories: Dyadic agreement signed in Kuala Lumpur on 27 February 2013.
Representatives from the other active rebel groups were not included in the negotiations or the peace agreement.
Third parties: Malaysia
Comment of third parties role in peace agreement: Malaysia hosted and served as a mediator when the parties met in several rounds of negotiations in Kuala Lumpur. Malaysia also signed the " Annex on Transitional Arrangements and Modalities to the Framework Agreement on the Bangsamoro (FAB)" together with representatives from MILF and the Philippine Government in Kuala Lumpur on 27 February.
Ended: True
Full-text peace agreement
Name of peace agreement: Annex on Revenue Generation and Wealth-sharing to the Framework Agreement on the Bangsamoro (FAB)
Date when warring parties signed the agreement: 2013-07-13
Comment of peace agreement: Partial peace agreement
Four annexes to the Framework Agreement on the Bangsamoro (FAB) remained to be hammered out in the beginning of 2013. During the negotiations in July, the second one of them was signed. This annex to the Framework Agreement on Bangsamoro provides details reguarding revenue generation and wealth sharing. It recognizes the need for economic gains to advance development goals in Bangsamoro and specifies fiscal powers for Bangsamoro. It includes a section that funding should be allocated in accordance with a gender and development plan.
Regarding the incompatibility the agreement confirmed that wealth creation is an important issue for the Bangsamoro territory given that it is one of the most underdeveloped in the country. The parties agreed to devolve government powers in order for the Bangsamoro government to attain fiscal autonomy. The agreement gave the Bangsamoro right to a 75% share of the central government taxes, charges and fees collected in the Bangsamoro, as well as 100% of the revenue from non-metallic minerals and 75% of the revenue from metallic minerals in the Bangsamoro territory. Grants from donors were to be received directly by the Bangsamoro government.
Signatories: Government: Miriam Coronel-Ferrer
MILF: Mohagher Iqbal
Signed in the presence of: Tengku Dato' Ab Ghafar Tengku Mohamed, Malaysian Facilitator
Comment of signatories: Dyadic agreement signed in Kuala Lumpur on 13 July 2013.
Representatives from the other active rebel groups were not included in the negotiations or the peace agreement.
Third parties: Malaysia
Comment of third parties role in peace agreement: Malaysia hosted and served as a mediator when the parties met in several rounds of negotiations in Kuala Lumpur. Malaysia also signed the “Annex on Revenue Generation and Wealth-sharing to the Framework Agreement on the Bangsamoro (FAB)" together with representatives from MILF and the Philippine Government in Kuala Lumpur on 13 July.
Ended: True
Full-text peace agreement
Name of peace agreement: Annex on Power-Sharing to the Framework Agreement on the Bangsamoro (FAB)
Date when warring parties signed the agreement: 2013-12-08
Comment of peace agreement: Partial Peace Agreement
Four annexes to the Framework Agreement on the Bangsamoro (FAB) remained to be completed by the beginning of 2013. This annex to the Framework Agreement on Bangsamoro provides details about competencies and authorities for power-sharing between the Government of the Philippines and the Bangsomoro Government. It includes governing aspects on intergovernmental relations, governance structure, delineation of powers, and other matters such as taxation and natural resources.
The issue of power-sharing was one of the most contentious, with the rebels seeking greater authority over the Bangsamoro territory. Regarding the incompatibility the agreement contained details about the authorities of the Central Government and the Bangsamoro Government. The agreement stated that the Bangsamoro shall have a democratically-elected ministerial form of government.
While the central government retained their authority within the areas of external security, foreign policy, monetary policy, citizenship and immigration, the Bangsamoro Ministerial Government was granted authority over numerous issues relating to the Bangsamoro territory including the establishment of Shari’ah courts, social services, education, culture and language.
Signatories: Government: Miriam Coronel-Ferrer
MILF: Mohagher Iqbal
Signed in the presence of: Tengku Dato' Ab Ghafar Tengku Mohamed, Malaysian Facilitator
Comment of signatories: Dyadic agreement signed in Kuala Lumpur on 8 December 2013.
Representatives from the other active rebel groups were not included in the negotiations or the peace agreement.
Third parties: Malaysia
Comment of third parties role in peace agreement: Malaysia hosted and served as a mediator when the parties met in several rounds of negotiations in Kuala Lumpur. Malaysia also signed the “Annex on Power-Sharing to the Framework Agreement on the Bangsamoro (FAB)" together with representatives from MILF and the Philippine Government in Kuala Lumpur on 8 December.
Ended: True
Full-text peace agreement
2014
| Estimated Fatalities | |
|---|---|
| High | 3 |
| Best | 2 |
| Low | 2 |
Secondary Warring Support:
Side A (Government of Philippines): n/a
Side B (MILF): n/a
Peace agreements
Name of peace agreement: Addendum on the Bangsamoro Waters and Zones of Joint Cooperation
Date when warring parties signed the agreement: 2014-01-25
Comment of peace agreement: Partial peace agreement
During 2012 and 2013 the Framework Agreement on the Bangsamoro (FAB) and three of its four annexes were signed. In January 2014 the fourth and final annex was signed. During the January meeting the parties also signed an addendum to the “Annex on Revenue Generation and Wealth Sharing” and the “Annex on Power Sharing”, regulating the Bangsamoro Waters. This addendum provides details about the Bangsamoro waters by specifying borders to do with water territories and establishes Zones of Joint Cooperation.
Regarding the incompatibility the agreement provided details for the Bangsamoro territory, more specifically for the Bangsamoro waters. The Bangsamoro Waters shall extend up to 12 nautical miles from the low-water mark of the coasts that are part of the Bangsamoro territory. The agreement also stated that there should be Zones of Joint Cooperation in the Sulu Sea and the Moro Gulf, and that the delineation of both the Bangsamoro Waters and the Zones of Joint Cooperation shall be determined in the Bangsamoro Basic Law (BBL).
To ensure cooperation and coordination, a Joint Body for the Zones of Joint Cooperation shall be created.
Signatories: Government: Miriam Coronel-Ferrer
MILF: Mohagher Iqbal
Signed in the presence of: Tengku Dato' Ab Ghafar Tengku Mohamed, Malaysian Facilitator
Comment of signatories: Dyadic agreement signed in Kuala Lumpur on 25 January 2014.
Representatives from the other active rebel groups were not included in the negotiations or the peace agreement.
Third parties: Malaysia
Comment of third parties role in peace agreement: Malaysia hosted and served as a mediator when the parties met in several rounds of negotiations in Kuala Lumpur. Malaysia also signed the " Addendum on the Bangsamoro Waters and Zones of Joint Cooperation" together with representatives from MILF and the Philippine Government in Kuala Lumpur on 25 January.
Ended: True
Full-text peace agreement
Name of peace agreement: Annex on Normalization
Date when warring parties signed the agreement: 2014-01-25
Comment of peace agreement: Partial peace agreement
This was the final annex to the Framework Agreement on Bangsamoro, completed during the beginning of 2014. It stipulated the rules for the decommissioning process and provided for the creation of several joint committees. It includes policing responsibilities of both Central and Bangsamoro forces, and creates other bodies to support peace and security normalization efforts. Other security provisions also address the redeployment of AFP troops and demining. Amnesty and pardons are provided for crimes connected to the conflict in Mindanao. The agreement further stipulates development processes and creates a Transitional Justice and Reconciliation Commission.
The decommissioning process is aimed at “achieving a smooth transition for the BIAF (Bangsamoro Islamic Armed Forces) members to productive civilian life”. An Independent Decommissioning Body (IDB) is to be created to oversee the process, composed of three foreign experts and four local experts. The agreement includes amnesty to MILF members charged with or convicted of crimes connected to the conflict in Mindanao.
Regarding the incompatibility the agreement provided for the creation of the police force for the Bangsamoro and an Independent Commission on Policing tasked with advising the new Bangsamoro police force. The Bangsamoro Transitional Authority is to elect the head of the police force, after recommendations from the Philippine National Police.
To monitor and enable the normalization process, the Annex on Normalization provided for the creation of a Joint Normalization Committee, and a Joint Peace and Security Committee. Furthermore, the agreement provided for the creation of a Transitional Justice and Reconciliation Commission.
Signatories: Government: Miriam Coronel-Ferrer
MILF: Mohagher Iqbal
Signed in the presence of: Tengku Dato' Ab Ghafar Tengku Mohamed, Malaysian Facilitator
Comment of signatories: Dyadic peace agreement signed in Kuala Lumpur on 25 January 2014.
Representatives from the other active rebel groups were not included in the negotiations or the peace agreement.
Third parties: Malaysia
Comment of third parties role in peace agreement: Malaysia hosted and served as a mediator when the parties met in several rounds of negotiations in Kuala Lumpur. Malaysia also signed the "Annex on Normalization" together with representatives from MILF and the Philippine Government in Kuala Lumpur on 25 January.
Ended: True
Full-text peace agreement
Name of peace agreement: Comprehensive Agreement on the Bangsamoro
Date when warring parties signed the agreement: 2014-03-27
Comment of peace agreement: Full peace agreement
The peace process between the Government of the Philippines and MILF began in 1997, continued under the facilitation of Malaysia in 2001. During 2012 and 2013 the Framework Agreement on the Bangsamoro (FAB) and three of its four annexes were signed. In January 2014 the fourth and final annex was signed and in March 2014, during a ceremony in the presidential palace, the Comprehensive Agreement on the Bangsamoro (CAB) was signed. The CAB consolidated and affirmed the agreements already signed by the parties, including the 2001 Agreement on Peace, 2012 Decision Points on Principles, 2012 Framework Agreement on Bangsamoro, 2013 Annex on Transitional Arrangements and Modalities, 2013 Annex on Revenue Generation and Wealth-sharing, 2013 Annex on Power-Sharing, 2014 Addendum on the Bangsamoro Waters and Zones of Joint Cooperation, and 2014 Annex on Normalization. The Comprehensive Agreement marked the end of the armed conflict between the government of the Philippines and MILF.
With regard to the incompatibility, the agreement acknowledges the grievances of the Bangsamoro people and commits to the establishment of a new Bangsamoro political entity. The agreement ends armed hostilities and provides for negotiated settlement. Parties commit to respecting the rights of Bangsamoro people, reduce inequalities, correct historical injustice, and remove cultural inequities.
When all agreements of the CAB have been fully implemented, the parties shall sign an Exit Agreement.
Signatories: Government: Miriam Coronel-Ferrer, Senen C. Bacani, Yasmin Busran-Lao, Mehol K. Sadain, Zenonida Brosas
MILF: Mohagher Iqbal, Datu Michael Mastura, Maulana "Bobby" Alonto, Abhoud Syed Lingga, Abdulla Camilian, Datu Antonio Kinoc
Witnessed by: Tengku Dato' Ab Ghafar Tengku Mohamed, Malaysian Facilitator
Signed in the presence of: Teresita Quintos-Deles, Presidential Adviser on the Peace Process; Al Haj Murad Ebrahim, Chair of the MILF; Benigno Simeon Aquino III, President, Philippines; Dato' Sri Hj. Mohd Najib Bin Tun Hj. Abdul Razak, Prime Minister of Malaysia
Comment of signatories: Dyadic agreement signed in Manila on 27 March 2014.
Representatives from the other active rebel groups were not included in the negotiations or the peace agreement.
Third parties: Malaysia
Comment of third parties role in peace agreement: Malaysia hosted and served as a mediator when the parties met in several rounds of negotiations in Kuala Lumpur. Malaysia also signed the " Comprehensive Agreement on the Bangsamoro (CAB)" together with representatives from MILF and the Philippine Government in Manila on 27 March.
Although not signatories, other parties are acknowledged in the agreement as playing a role in the peace process:
Members of the International Contact Group: Japan, Saudi Arabia, Turkey, UK, Center for Humanitarian Dialogue, Community of Sant'Egidio, Conciliation Resources, Muhammadiyah, and the Asia Foundation
Members of the International Monitoring Team: Brunei, Indonesia, Japan, Libya, Noway, EU, and the Civilian Protection Component comprised of the Mindanao Human Rights Action Center, Mindanao People's Caucus, Moslem Organization of Government Officials and Professionals, and Nonviolent Peaceforce
Organization of Islamic Cooperation as observer
Third Party Monitoring Team: EU, the Asia Foundation, Turkish Humanitarian Relief Foundation, two leaders of local civil society organizations
Independent Commission on Policing: international experts from Canada, Australia, Japan, and local experts
Comment of Duration: In spite of the peace agreement signed in 2014, fighting between the government and MILF erupted in January 2015 shattering the three-year ceasefire. The passage of the Bangsamoro Basic Law in the Philippine Congress was delayed several times during the year and by the end of 2015, the peace agreement still was not implemented. The government of the Philippines and MILF met in Malaysia in February, May, and August 2016. The talks resulted in an extended ceasefire (until March 2017), and a Declaration of Continuity of the Partnership in the peace process.
Full-text peace agreement
2015
| Estimated Fatalities | |
|---|---|
| High | 83 |
| Best | 65 |
| Low | 65 |
Secondary Warring Support:
Side A (Government of Philippines): n/a
Side B (MILF): n/a
2016
| Estimated Fatalities | |
|---|---|
| High | 2 |
| Best | 2 |
| Low | 2 |
Secondary Warring Support:
Side A (Government of Philippines): n/a
Side B (MILF): n/a
2018
| Estimated Fatalities | |
|---|---|
| High | 0 |
| Best | 0 |
| Low | 0 |
Secondary Warring Support:
Side A (Government of Philippines): n/a
Side B (MILF): n/a
2019
| Estimated Fatalities | |
|---|---|
| High | 4 |
| Best | 4 |
| Low | 4 |
Secondary Warring Support:
Side A (Government of Philippines): n/a
Side B (MILF): n/a
2020
| Estimated Fatalities | |
|---|---|
| High | 1 |
| Best | 1 |
| Low | 1 |
Secondary Warring Support:
Side A (Government of Philippines): n/a
Side B (MILF): n/a
2022
| Estimated Fatalities | |
|---|---|
| High | 11 |
| Best | 11 |
| Low | 11 |
Secondary Warring Support:
Side A (Government of Philippines): n/a
Side B (MILF): n/a
2023
| Estimated Fatalities | |
|---|---|
| High | 0 |
| Best | 0 |
| Low | 0 |
Secondary Warring Support:
Side A (Government of Philippines): n/a
Side B (MILF): n/a
2025
| Estimated Fatalities | |
|---|---|
| High | 9 |
| Best | 9 |
| Low | 9 |
Secondary Warring Support:
Side A (Government of Philippines): n/a
Side B (MILF): n/a
Dyad Archive
This section contains annual information no longer systematically collected by the UCDP.
1981 Dyad Archive
Terminated: NO
1990 Dyad Archive
Comment on Active: Some rebellious factions of the military (see Philippines government conflict) sold weapons to MILF, and their activity began to garner more coverage.
Negotiations: NO
Victory: NO
Terminated: YES
Type of termination: No or Low Activity
Date of termination: 1990-12-31
1991 Dyad Archive
Terminated: NO
1992 Dyad Archive
Terminated: NO
1993 Dyad Archive
Terminated: NO
1994 Dyad Archive
Comment on Active: A major offensive at the end of the year led to an increased activity. In May, there were reports about a merger between MILF and the MNLF. This did not occur, as the people involved most likely were MNLF members disgruntled with the peace process that decided to join the MILF instead.
MILF itself claimed that ASG wanted to merge into MILF in December, but was rebuffed unless it stopped attacking civilians. This was not confirmed by ASG members.
Negotiations: NO
Victory: NO
Terminated: YES
Type of termination: No or Low Activity
Date of termination: 1994-12-31
1995 Dyad Archive
Terminated: NO
1996 Dyad Archive
Negotiations: NO
Comment on Negotiations: MILF did not sign the peace agreement, but promised not to "stand in the way of peace". On 18 April, the government and MILF agreed on a ceasefire and exploratory talks between them started in August.
Victory: NO
Terminated: NO
1997 Dyad Archive
Comment on Active: Several rumours claimed that the MILF, the ASG, and a political group called the NIC (National Islamic Command) were about to form a tactical alliance. In May it was reported that some 1 500 former MNLF members had joined the MILF since the former had committed to the peace agreement.
The year started with intense fighting but after a few months the troops were less active, as attempts were made at restarting the peace process. In June and July, the government instigated a large-scale offensive against MILF.
Negotiations: NO
Comment on Negotiations: After heavy fighting in the beginning of the year, MILF and the government agreed to a ceasefire on 27 January. This was accompanied with the opening of preliminary peace talks between the two groups, which lasted from 7 January to the end of June. In the talks MILF presented a 9-point agenda: ancestral domain; displaced and landless Bangsamoro; destruction of properties and war victims; human rights issues; social and cultural discrimination; corruption of the mind and moral fiber; economic inequities and widespread poverty; exploitation of natural resources and agrarian reforms. The process was interrupted, but resumed in July when the two parties signed a "cessation of hostilities" agreement. In July, several ceasefires were proclaimed, and from 21 July both sides implemented a ceasefire. In August the parties signed a document that reaffirmed the parties commitment to a resolution of the conflict, the Agreement of Intent.
In September, there were renewed clashes and the government declared a unilateral ceasefire on 14 November. On 28 December, the MILF and the government committed to sign at least a preliminary peace accord within a year.
Victory: NO
Terminated: NO
1998 Dyad Archive
Comment on Active: Most of the activity during 1998 was based around peace talks, even though there were repeated clashes between rebels and government forces. In December, the government instigated a large-scale offensive aimed at both the MILF and the ASG.
Negotiations: NO
Comment on Negotiations: During the year, preliminary talks continued between the MILF and the government. A ceasefire between 20-25 January, led to the opening of talks on 4 February. On 6 February, the two parties agreed in principle to prevent future battles, something that was formalized on 11 March when MILF and government representatives formed a rapid response conflict-solving group. Due to the presidential elections in June, peace talks were suspended temporarily, but on 20 October both parties agreed to reveal the location of their respective camps, in an attempt to prevent "coincidental" clashes between the two forces.
Victory: NO
Terminated: NO
1999 Dyad Archive
Comment on Active: During the first half of the year, preparations for peace talks led to low activity, as the peace process seemed to gain momentum with negotiations between MNLF and MILF. After talks brokered by Libya led to an agreement between MNLF and MILF to form an UCC (United Coordinating Council) in their struggle for Mindanao, the leaders Nur Misauri (MNLF) and Hashim Salamat (MILF) met again - for the first time in over 20 years - on 16 March.
After July, there was an increase in fighting that continued throughout the year.
Negotiations: YES
Comment on Negotiations: After several months of arguing about the location where the government and MILF should meet (Libya or Malaysia), formal peace talks between the government and MILF opened at Dawah Center, Sultan Kadaat, in Maguidanao on 25 October 1999. The first discussion points were formalities, and on 17 December, both parties signed a decision on the conduct during the remaining negotiations.
Victory: NO
Terminated: NO
2000 Dyad Archive
Comment on Active: During the first half of the year, the peace negotiations between MILF and the government continued even though the intensity of the conflict escalated. Large-scale government offensives eventually led to MILF pulling out of talks, and on 9 July the government announced that they had defeated MILF and captured all of their camps. As a response, the MILF leader Salamat Hashim declared a "jihad" against the Filipino government.
In April, it was reported that MILF was negotiating an alliance with the NPA (New Peoples Army - the military wing of the CPP -Communist Party of the Philippines), which would entail coordinating their activities against the government.
Negotiations: YES
Comment on Negotiations: Peace negotiations were briefly interrupted in April due to a government offensive. On 6 May, the MILF declared a unilateral ceasefire and wanted to reopen the talks, but the government offensive continued until the 16 May. On 30 May, negotiations resumed but a new government offensive eventually led to MILF leaving the peace talks on 15 June.
Victory: NO
Terminated: NO
2001 Dyad Archive
Comment on Active: After the Filipino President Estrada was ousted in January on charges of corruption, the conflict activity decreased and the peace process was resumed. This led to a decrease in violence compared to the previous year.
Negotiations: YES
Comment on Negotiations: On 20 February, the government suspended all military operations against MILF, and peace talks were reopened on 24 March in Malaysia. These preparatory talks got underway without any major obstacles, and on 22 June MILF and the government signed an agreement (the 2001 Tripoli Agreement) committing to the peace process. Formal peace negotiations started two days later. These lasted until October, and were brokered by Malaysia.
Victory: NO
Terminated: NO
2002 Dyad Archive
Comment on Active: As the newly elected ARMM leadership was installed in Corabato City at the beginning of the year, several ceasefire violations by the MILF occurred.
Negotiations: NO
Comment on Negotiations: Several attempts to resume the peace talks between the government and MILF were made. In March, President Arroyo suspended formal peace talks, as she wanted MILF to prove their sincerity in peace talks. She eventually continued with low-level contacts, and on 6 May the parties issued a joint communiqué aimed at "criminal elements" trying to hijack the peace process.
Due to the US-led war on terror, there were suggestions about links between MILF and Jemaah Islamiah that were denied, but the war-of-words postponed the resumption of negotiations.
A series of meetings were held between June-September but no formal talks were resumed.
Victory: NO
Terminated: NO
2003 Dyad Archive
Negotiations: NO
Comment on Negotiations: Several attempts to resume formal talks were made. However, the talks were continuously delayed and no formal peace talks were initiated during this year.
Victory: NO
Terminated: NO
2004 Dyad Archive
Negotiations: NO
Comment on Negotiations: Peace talks between the government of Philippines as MILF was planned several times, but continuously postponed. Some exploratory talks were held in Malaysia but plans for real negotiations were never formalized.
Victory: NO
Terminated: NO
2005 Dyad Archive
Comment on Active: As in 2004, clashes between the Philippines and MILF were infrequent in 2005. However, the dyad clearly reached the threshold for activity.
Negotiations: YES
Comment on Negotiations: Several rounds of negotiations were held between the Philippine government representatives and MILF officials, beginning in April. Although referred to as "exploratory" the talks are coded as negotiations since issues related to the incompatibility were discussed, including territorial control. The talks were hosted by Malaysia. Although no formal agreement was reached, peace talks reportedly ended on a positive note. In October, it was reported that the government had agreed to allow for a Bangsamoro government to e.g. have its own tax system, constitution and legal and financial institutions. This was, however, not formalized.
Victory: NO
Terminated: YES
Type of termination: No or Low Activity
Date of termination: 2005-12-31
2006 Dyad Archive
Comment on Yearly Battle Related Deaths: In 2006 the fighting de-escalated below the 25 battle-related death threshold for the first time since 1995. Thus, breaches of the ceasefire were rare, but did occur.
Comment on Active: In 2006 the fighting de-escalated below the 25 battle-related death threshold for the first time since 1995. Thus, breaches of the ceasefire were rare, but did occur. The few incidents of fighting that did take place many times had more to do with local politics than the original conflict, stemming from intermittent fighting between MILF commands and right-wing paramilitaries. Furthermore, they point to the apparent autonomy of some of the group’s more hard-line commanders.
Negotiations: YES
Comment on Negotiations: The Malaysia-led peace process continued in 2006. However, as in previous years discussions were solely held between the two parties in the technical committee. While both parties early in the year stated that a peace deal could well be signed before the year’s end, they failed to reach agreement during 2006.
Both sides said that they broke a deadlock on the thorny issue of the size of the ancestral domain claimed by MILF during talks in February. In March, formal talks set to resume never materialized. Instead, informal talks continued, again focusing on MILF’s territorial claims. In May the talks stalled, as MILF turned down an offer by the government to add 600 villages to an existing five-province Muslim autonomous region. MILF for their part tabled a list of over 1000 villages that they wanted to include. An attempt to break the deadlock was made in September, but after three days the talks were suspended without the teams managing to break the impasse on the territorial issues. MILF persisted in their stance, demanding over 1000 villages to be included in the area without a referendum. This was rejected by government negotiators who stated that it was against the constitution. The parties met again in December, with no break through reported.
Victory: NO
Terminated: NO
2007 Dyad Archive
Comment on Active: The first clashes in 2007 between the MILF and the GRP were triggered by MILF guerrillas’ attack on pro-government militiamen and their families as they harvested rice in a village in the town of Midsayap in Cotabato province, of which one militiaman died. The Armed Forces of the Philippines (AFP) responded by sending in a “peacekeeping force”, but this force was prompted to retaliate after the rebels massed around 200 guerrillas and fired mortars at soldiers. The next serious clash, which made this dyad reach the 25-deaths threshold, occurred as some 300 Moro Islamic Liberation Front (MILF) fighters attacked army detachments in two villages on Mindanao island on 5 March 2007; 18 MILF rebels and one government soldier died. One of the most noted violent episode of the year took place on 10-11 July. As Philippine marines went searching for a kidnapped Italian priest on 10 July around Tipo Tipo town on Basilan island, some 300 guerilllas (first suspected to be Abu Sayyaf Group rebels) attacked the marines and 10 of them went unaccounted for. The following day, 11 July, the marines were found and their bodies had been beheaded. On 12 July, the MILF took responsibility but refused to own up to the beheadings and promised an investigation. In the weeks that followed the GRP kept on threatening all-out-war and imposing deadlines on MILF to extradite the rebels responsible for the beheadings. On 27 July, the Philippine police on Friday identified six MILF rebels and two Abu Sayyaf leaders as responsible for the ambush-killing of 14 government soldiers, 10 of them beheaded on July 10. The MILF leadership admitted that its men were involved in the July 10 fighting but denied that they were behind the beheading. After the above events, violence between the MILF and the GRP significantly decreased. The handful clashes that occurred after the July events were perpetrated by MILF and ASG in tandem and were thus not pure MILF attacks.
Negotiations: YES
Comment on Negotiations: After a negotiation deadlock, over the size of the southern region (Bangsamoro Juridical Entity, BJE) that would fall under Moro control, that began in September 2006, the peace process cautiously resumed in 2007. This was possible in spite of an escalation in violence seen in 2007 with several spectacular attacks perpetrated by the MILF (e.g. the beheading of 10 marines in July) which elicited harsh response from the government of Philippines (GRP). By September 2007 the MILF expressed weariness over the government’s postponement of the peace efforts (first on 1-2 May 2007 and second on 22 Aug 2007) for “flimsy reasons".
In late October (23-24 October) the warring parties met in Kuala Lumpur, Malaysia to attempt to set a date for formal peace talks as well as gaining the parties’ position on the most serious obstacle to a final agreement, the issue of ancestral domain. The MILF has insisted on the inclusion of at least 1,000 villages in the BJE without pre-conditions while the government has stated that 600 villages could be provisionally included and that the final composition of the territory would depend on the outcome of a plebiscite. At the end of the two-day October talks, the warring parties released a joint statement deeming the talks successful and expressed readiness to resume the next round of exploratory talks mid-November. On 14-15 November, the parties did indeed meet, again in Malaysia, after which they jointly stated that all previous points of consensus on the core item of the territorial issue were affirmed, and significant headway in defining key principles relating to maritime domain was achieved. This cleared the way for the drafting of the memorandum of agreement on ancestral domain which would be tabled at the formal peace talks scheduled for early 2008 and that the last round of preparatory talks would be held in mid-December , the statement said. Additional boost for the MILF-GRP peace process came through EU-led peace talks in late November.
However, the last scheduled exploratory talks of 2007 on 15 December were cancelled. The MILF backed out of the meeting due to the group’s rejection of the government negotiators’ inclusion of the phrase “constitutional process” in the proposed draft Memorandum of Agreement on ancestral domain. Under the Constitution, the exploration, utilization and development of natural resources shall be under the full control of the state. The government indicated, however, that the impasse was surmountable and that the President was still determined to pursue a comprehensive agreement.
Victory: NO
Terminated: NO
2008 Dyad Archive
Comment on Active: During the first half of 2008 activity was low in the dyad and the ceasefire appeared to be stable. Frustration with the slow progress in the peace process caused tension to increase and fierce clashes erupted in Sarangani province in June. Fighting ceased after an intervention by the parties’ ceasefire committees and the IMT. Both parties afterwards assured their commitment to the ceasefire.
After the aborted MOA-AD signing ceremony, violence escalated in southern Philippines. MILF units had in late July occupied some villages in North Cotabato province, and on August 6, two days after the Supreme Court injunction, the National Security Council told MILF to withdraw from the occupied areas in 24 hours. When MILF refused to leave, the Philippine army launched a “clearing operation” on August 10.
On August 18 another MILF group under the command of “Bravo” attacked four, mainly Christian, villages in Lanao del Norte province on Mindanao, resulting in the deaths of nearly 30 civilians and the start of the worst flare-up in violence since 2003. Heavy artillery bombardment and air strikes, combined with raids and mortar shelling continued throughout the year, although most fighting took place from mid-August to early November. The renewed conflict in Mindanao left over 200 people dead and around 300 000 people displaced.
Negotiations: YES
Comment on Negotiations: The parties met in secret talks in Kuala Lumpur, Malaysia during summer 2008 resulting in a draft agreement on July 16 concerning the autonomy of Muslim territory. Presidential adviser on the peace process Hermogenes Esperon said that through the informal discussions, "we have resolved several differences, especially those pertaining to the ancestral domain issue." He said this included "the jurisdiction and control of the natural resources" of the areas to be considered the ancestral domain. New meetings were hosted by Malaysia July 24-27 and the Memorandum of Agreement on Ancestral Domain (MOA-AD) was finally initialed by both parties on July 27. The MOA-AD, considered to be the most far-reaching of more than 70 agreements reached by the Government and MILF since talks began in 1997, was scheduled to be signed during a ceremony on August 5 in Malaysia. Yet all actors were not pleased by the agreement and landowners and local politicians filed petitions with the Supreme Court saying the proposed Bangsamoro homeland could lead to the formation of an independent state. On August 4, one day before the planned signing ceremony, the Supreme Court issued a restraining order on the signing of the agreement.
Fierce fighting erupted in mid-August and on September 3 President Arroyo announced that the Government peace panel was dissolved. The Supreme Court ruled on October 14 that the MOA-AD was unconstitutional. Both parties made statements at the end of year, pledging their openness towards the peace process, but no dates for negotiations were set. Furthermore, MILF declared that the opposing stands on the MOA-AD, which MILF considered a “done deal”, had to be solved before talks could resume.
Victory: NO
Terminated: NO
2009 Dyad Archive
Comment on Active: The first half of 2009 was violent as the government forces carried on with their offensive against MILF. Yet, both parties maintained that they were willing to resume peace talks. In late July the government announced a unilateral ceasefire, and two days later MILF followed. Shortly thereafter informal peace talks were initiated and violence decreased dramatically. Following several informal talks, in which the parties agreed to form an international contact group and to protect civilians, formal negotiations finally opened in Kuala Lumpur in December.
Negotiations: YES
Comment on Negotiations: During 2009, the Philippine government and MILF resumed negotiations, which had been stalled since August 2008. After extensive effort from the third parties, both parties ordered unilateral ceasefires in July, and shortly thereafter, informal meetings were held in Kuala Lumpur. On 15 September 2009, another round of informal meetings in Kuala Lumpur resulted in the ‘Framework agreement on the formation of the international contact group for the GRP-MILF peace process’, in which the parties agreed to form an international contact group (ICG) with the mission to assist the Malaysian facilitator and to make sure both sides honour any final peace deal.
On 27 October, the parties signed the ‘Agreement on the Civilian Protection Component of the International Monitoring Team’ in which they agreed to reactivate the International Monitoring Team (IMT) and to extend its mandate to also include protection of civilians. The agreement also obligated the parties to refrain from targeting the civilian population.
Formal peace talks, facilitated by Malaysia, finally opened on 8 December. At the end of the two-day talks in Kuala Lumpur, a Malaysian official announced that the parties had agreed to begin negotiations on the drafting of a Comprehensive Peace Compact and that they hoped to sign the agreement in spring 2010.
Victory: NO
Terminated: YES
Type of termination: No or Low Activity
Date of termination: 2009-12-31
2010 Dyad Archive
Negotiations: YES
Comment on Negotiations: In negotiations in December 2009, the parties agreed to present their draft agreements during a meeting in January. On 27-28 January 2010, the parties met again in Kuala Lumpur, Malaysia in formal negotiations. The Philippine government offered MILF ‘enhanced autonomy’, which would cover tax collection and control of natural resources. However, MILF stated that the government offer was unacceptable and that they wanted “a real state and sub-state relationship where they could have real governance and control over their lives”. In April they both signed an agreement to ensure a peaceful election, and in June, an agreement to maintain peace during the political transition of changing president was signed at the IMT headquarters in Mindanao. Negotiations were planned to restart after the new president was sworn in, but they were postponed several times and the parties did not meet for peace talks again during 2010.
Victory: NO
Terminated: NO
2011 Dyad Archive
Comment on Active: After a lull in fighting in 2010, clashes between MILF and the government during 2011 resulted in over 25 battle-related deaths, making the dyad active in UCDP data. Fighting was concentrated to the provinces of Zamboanga Sibugay and Basilan, and included air strikes, ambushes and gun battles. Several rounds of peace negotiations hosted by Malaysia failed to produce a peace agreement, although both parties confirmed that the ceasefire proclaimed in 2009 was still in place.
Negotiations: YES
Comment on Negotiations: While no negotiations were held during the second half of 2010, the parties met on numerous occasions during 2011. On 13 January, exploratory talks hosted by Malaysia took place in Kuala Lumpur and resulted in an agreement to resume formal peace talks. On 9-10 February, the first negotiations since June 2010 took place, and the IMT mandate was renewed for another 12 months. The parties exchanged drafts on their positions and agreed to meet again in April.
The Malaysian facilitator was replaced during the talks in April, after critique from the government that he was biased towards the rebels. During the two-day meeting in Kuala Lumpur MILF put forward a draft agreement and the government said that they would respond during the talks in June. However, their submission of a proposal was delayed, and peace talks were stalled.
In August, the peace process was still deadlocked and a secret meeting between President Aquino and the MILF chairman Ebrahim took place in Tokyo during which the parties agreed to speed up the talks. Between 22 and 23 August, a new round of negotiations took place in Kuala Lumpur but MILF deemed the government offer inadequate and the talks planned for September were postponed. Following a statement by MILF that they refused to hold direct talks with the government until they modified their proposal, the Malaysian facilitator met with the parties separately. In early October, MILF submitted a new proposal, but the outbreak of fighting in mid-October put the peace process on hold. Although several clashes took place between the parties, they both confirmed that the ceasefire was still in place, and in early November informal talks were held in Kuala Lumpur. Between 5 and 7 December, another round of formal negotiations was hosted by Malaysia during which the parties discussed a framework agreement, agreed to extend the IMT mandate and decided to meet again in January 2012.
Victory: NO
Terminated: YES
Type of termination: No or Low Activity
Date of termination: 2011-12-31
2012 Dyad Archive
Comment on Active: The ceasefire between the Philippine government and MILF was in place during the entire year of 2012 and fighting between the parties did not result in 25 battle-related deaths during the year. In early October, before the peace agreement was signed, MILF accused the government of violating the ceasefire by deploying more than 100 troops near Palimbang town on the southern island of Mindanao. MILF described the move as "provocative" while the troops said they were only there to conduct anti-illegal logging operations.
On 15 October the “Framework Agreement on the Bangsamoro” was signed by the warring parties during a ceremony in the presidential palace in Manila, after numerous rounds of peace talks hosted by Malaysia.
Negotiations: YES
Comment on Negotiations: In the Government – MILF dyad numerous rounds of formal negotiations were hosted by Malaysia during which the parties discussed the details of a possible framework agreement.
The parties met in January, February, March, April, May, July, August, September and October and promising statements were issued by both parties in connection to the talks, although some warnings about the negotiations reaching a stalemate appeared during the first half of the year.
On 2 October the 32nd round of formal exploratory talks started in Malaysia. After the usual three to four days of talks the parties were close to an agreement and the negotiations were extended for two more days. On 7 October the parties announced that they had agreed on a framework agreement to be signed on 15 October in Manila.
On 15 October, a ceremony was held at the presidential palace in the Philippine capital Manila, during which the “Framework Agreement on the Bangsamoro” was signed by representatives from the conflict actors as well as the Malaysian mediator. This was the first time a MILF chief was visiting the presidential palace.
The agreement called for the establishment transition commission to work out the details of the agreement and the parties expressed hope that a final peace agreement could be signed before 2015.
Victory: NO
Terminated: NO
2013 Dyad Archive
Comment on Active: The ceasefire between the Philippine government and MILF was in place during the entire year of 2013 and fighting between the parties did not result in 25 battle-related deaths during the year. Numerous rounds of peace talks were held in Malaysia during the year, resulting in the signing of three different annexes to the Framework Agreement on the Bangsamoro (FAB) signed on 15 October 2012.
In February, President Aquino paid a historic visit to the MILF main base in Mindanao, the first peace mission there by a president. Aquino handed out benefits to the rebels’ families and attended a football game between government soldiers and MILF rebels.
Negotiations: YES
Comment on Negotiations: Numerous rounds of formal negotiations were hosted by Malaysia during which the parties discussed the annexes to the Framework Agreement on the Bangsamoro (FAB), signed in October 2012. The parties met in Kuala Lumpur in January, February, April, July, August, September, October and December and in Norway in June. Aquino stated that his goal was to finalize the peace agreement and end the negotiations before his term ends in 2016.
Four annexes to the FAB remained to be hammered out in the beginning of 2013. During the negotiations in February, the first of them was signed. The “Annex on Transitional Arrangements and Modalities to the Framework Agreement on the Bangsamoro” provided for the creation of a Transition Commission (TC) with the task to draft the Bangsamoro Basic Law and to propose constitutional amendments. The 15-man TC was formed and the chief negotiator of MILF, Mohagher Iqbal, was appointed as head of the Commission.
After the initial success in the negotiations, the parties failed to sign the three remaining annexes during their meeting in April. Peace talks were postponed several times and the Malaysian facilitator held separate backroom talks with the parties to restart the negotiations. In late June, the parties met in Norway and agreed to finally resume formal talks the following month.
During the next meeting, in mid-July, the second annex was signed. The “Annex on Revenue Generation and Wealth-sharing to the Framework Agreement on the Bangsamoro” gave the Bangsamoro right to a 75% share of the central government taxes, charges and fees collected in the Bangsamoro, as well as 75% of the revenue from metallic minerals in the Bangsamoro territory.
In August, the parties agreed to hold a 10-day formal talk in September to finalize the remaining two annexes. However, the parties failed to approve the annexes and new negotiations were planned for October. In December, the parties finally signed the third annex, the “Annex on Power-sharing to the Framework Agreement on the Bangsamoro”. The power-sharing issue was one of the most contentious, with the rebels seeking greater authority over the Bangsamoro territory. While the central government retained their authority within the areas of external security, foreign policy, monetary policy, citizenship and immigration, the Bangsamoro Ministerial Government was granted authority over numerous issues relating to the Bangsamoro territory including the establishment of Shari’ah courts, social services, culture and language.
The final annex, on demobilization and normalization, was planned to be discussed at the next round of talks, in January 2014.
Outside of the negotiations concerning the FAB and its annexes, the parties signed a jointly undertaken development program in April to deliver basic socio-economic services to target communities in the Bangsamoro territory. Ahead of the elections in May, the parties signed a special ceasefire agreement and agreed to undertake joint security measures during the elections.
Victory: NO
Terminated: NO
2014 Dyad Archive
Comment on Active: The ceasefire between the Philippine government and MILF was in place during the entire year of 2014 and fighting between the parties did not result in 25 battle-related deaths during the year. The parties signed the Comprehensive Agreement on the Bangsamoro (CAB) in March 2014, following the signing of the Annex of Normalization in January 2014. Decommissioning started in September 2014 as stipulated in the peace agreement, and an independent body was created to oversee the disarmament process.
Negotiations: YES
Comment on Negotiations: In the Government - MILF dyad numerous rounds of negotiations were hosted by Malaysia. The parties met in Kuala Lumpur in January, a meeting that resulted in the signing of the final annex of the Framework Agreement on the Bangsamoro (FAB), the Annex on Normalization. The agreement was seen as one of the most sensitive ones because it regulates the disarmament process. The Annex on Normalization also includes amnesty to MILF members who are facing or have been convicted on rebellion-related charges. During the meeting in January, the parties also signed an addendum to the Annex on Revenue Generation and Wealth Sharing and the Annex on Power Sharing.
The Transition Commission (TC), created in 2013 and tasked with drafting the Bangsamoro Basic Law (BBL), started working on the BBL immediately after the January meeting, hoping to present it to the President by April 2014.
ON 27 March 2014, the Comprehensive Agreement on the Bangsamoro (CAB) was signed during a ceremony in the presidential palace in Manila. The historic agreement aimed to end 40 years of fighting between the government of the Philippines and the MILF.
During a visit to Hiroshima, Japan in June, the Philippine president and the MILF chairman met to discuss the BBL, which the Congress had failed to pass as planned. The next meeting took place in August in Davao City, still focusing on the draft BBL which had not yet been submitted to Congress. After several days of closed door meetings, the parties issued a joint statement on 10 Aug saying that they had reached agreement on large parts of the draft BBL. On 20 Aug, the final draft was finally submitted to the President.
In early September, secret meetings were held between the Philippine president and the MILF chairman in an attempt to resolve some remaining differences over the BBL, and on 10 September the President submitted the draft BBL to Congress. The plan is to ratify the BBL during 2016.
In late September meetings were held in Malaysia, discussing the disarmament process. The parties appointed three experts from Brunei, Turkey and Norway to oversee the process. In October, another round of meetings in Kuala Lumpur resulted in the creation of a composite team tasked with enabling the transition from the Autonomous Region in Muslim Mindanao (ARMM) to the new Bangsamoro Transition Authority (BTA). During meetings in Kuala Lumpur in November, the parties signed the terms of reference for a new body called the Coordination Team for the Transition (CT4T), which shall serve as the "primary mechanism for coordination between Parties and concerned agencies to ensure that the necessary steps are undertaken in preparation for the transition leading to the installation of the BTA.". The parties also agreed on confidence-building measures aimed at transforming MILF camps into farming communities.
Victory: NO
Terminated: NO
2015 Dyad Archive
Comment on Active: In spite of the peace agreement signed in 2014, fighting between the government and MILF erupted in January 2015 shattering the three-year ceasefire. Both parties were accused of breaking the ceasefire during the worst clashes since 2011. The fighting, which took place in Maguindanao, resulted in at least 44 special forces being killed. The passage of the Bangsamoro Basic Law in the Philippine Congress was delayed several times during the year and by the end of 2015, the peace agreement still was not implemented.
Negotiations: YES
Comment on Negotiations: In late January, the government of the Philippines and MILF met in Malaysia to finalize the protocols for the decommissioning of firearms, part of the Annex on Normalization to the Framework Agreement on the Bangsamoro signed in 2014.
Victory: NO
Terminated: YES
Type of termination: No or Low Activity
Date of termination: 2015-12-31
2016 Dyad Archive
Comment on Active: The ceasefire between the Philippine government and MILF was in place during 2016 and fighting between the parties did not result in 25 battle-related deaths during the year. The passing of the BBL (Bangsamoro Basic Law) was delayed further and when the new president, Rodrigo Duterte, was inaugurated in June, he signaled that he would focus on federalization instead of BBL.
Negotiations: YES
Comment on Negotiations: No negotiations took place in the Government - ASG dyad, or the Government - BIFM dyad during 2016.
The government of the Philippines and MILF met in Malaysia in February, May, and August. The talks resulted in an extended ceasefire (until March 2017), and a Declaration of Continuity of the Partnership in the peace process.
Victory: NO
Terminated: NO
2018 Dyad Archive
Terminated: NO
2019 Dyad Archive
Comment on Active: The ceasefire between the Philippine government and MILF was in place during 2019 and fighting between the parties did not result in 25 battle-related deaths during the year.
Terminated: NO
2020 Dyad Archive
Terminated: NO
2022 Dyad Archive
Terminated: NO
2023 Dyad Archive
Terminated: NO
2025 Dyad Archive
Terminated: NO
