The Question of Primacy: Economic Development v. Social Rights in the Face of the Displacement of Aetas in Clark Special Economic Zones and Freeports.
I. Introduction A. Background Sacobia Valley is a vast land comprising approximately of five thousand seven hundred twenty four (5,724) hectares covering the municipalities of Bamban, Tarlac and Mabalacat, Pampanga. It serves as the border between the provinces of Pampanga and Tarlac. Sacobia is part of the former Clark Air Base Military Reservation which reverted to the Philippines back in 1979. 1 The valley is inhabited by the Mag-Aantsi Aetas, an indigenous community. 2
In March of 1992, under the administration of Corazon Aquino, Republic Act No. 7227, or the Bases Conversion and Development Act of 1992, was passed creating the Bases Conversion Development Authority (BCDA) which is tasked primarily to oversee the conversion and development of the Clark and Subic military reservations and lands covered under the 1947 Military Bases Agreement between the Philippines and the United States of America. 3 Special Economic Zones, mainly for industry and tourism, were also created. Section 15 of the BCDA provides:
1 EO 344 2 Mathilde Baker 3 RA 7227 Page | 2
SECTION 15. Clark and Other Special Economic Zones. the President is hereby authorized to create by executive proclamation a Special Economic Zone covering the lands occupied by the Clark military reservations and its contiguous extensions as embraced, covered and defined by the 1947 Military Bases Agreement between the Philippines and the United States of America, as amended 4 (note: I quoted this baka mai-relate natin dun sa eminent domain issue) By virtue of such authority, President Fidel V. Ramos, via a presidential proclamation, created the Clark Special Economic Zone (CSEZ). 5 Thereafter, the Clark Development Corporation (CDC) was established as the implementing and operating arm of the BCDA to manage the CSEZ. 6 Proclamation No. 805 formally included Sacobia in the CSEZ, to wit: FIDEL V. RAMOS, President of the Republic of the Philippines, by virtue of the powers vested in me by law and the sovereign will of the people, do hereby include in the Clark Special Economic Zone the five thousand seven hundred twenty four (5,724) hectare portion located in the municipalities of Mabalacat, Pampanga and Bamban, Tarlac, more commonly known as Sacobia Further, vested rights and valid ancestral domain claims within the Sacobia area as verified and validated by the DENR and other pertinent government agencies shall be respected. 7 (Note: I found this, meron din syang provision about vested rights and stuff) Accordingly, Executive Order No. 344 (1996) transferred the powers and functions of the then existing Sacobia Development Authority (SDA) to the CDC. 8 Hence, at the present, CDC has the exclusive authority and jurisdiction over Sacobia. In relation to this, Section 7 of E. O. No. 344 also empowers the CDC to transfer and resettle Sacobia communities, in this wise: Section 7. Settlement and Re-settlement of Sacobia Communities- Subject to existing legal rights and valid ancestral domain claims within the Sacobia area, as verified and validated by the
Department of Environment and Natural Resources, communities and permanent residents of Sacobia may be transferred and resettled by the CDC, at the expense of the BCDA, to give way to development projects in the area. 9
In 1997, Republic Act No. 8371, or the Indigenous Peoples Rights Act (IPRA), was enacted. IPRA aims to provide full protection and recognition of the rights pertaining to Indigenous Peoples and Indigenous Cultural Communities (IPs/ICCs). Among its salient provisions is the establishment of a procedure for the recognition and titling of ancestral lands and domains. It therefor gave IPs and ICCs an opportunity to protect their lands. Pursuant to such law, IPs/ICCs in the Sacobia Valley as represented by Indigenous Peoples Organizations (IPOs) such as Mabalacat Aeta Tribal Association (MATA) and Bamban Aeta Tribal Association (BATA) were granted Certificate of Ancestral Domains Title (CADTs) covering a total of 10, 684 hectares in 2009. 10 It is important to note, however, that even before the passage of IPRA there were already many attempts for the recognition of the Ancestral Domains. In 1998, a Certificate of Ancestral Domain Claims (CADC) covering 5,515 hectares inside Clark Field was issued by the Department of Environment and Natural Resources to BATA. 11
Despite the passage of IPRA and the issuance of the CADTs, the rights of many Aetas in the Sacobia community were still subjected to violations. Many were displaced and relocated due mainly to development projects undertaken by the CDC, which usually involve partnerships and agreements with foreign firms.
Due to the resulting displacement, some of Aetas were forced to live in compartmentalized houses provided by Gawad Kalinga (GK). These houses do not provide sufficient space for carabaos, pigs and poultry as usually is the case in a traditional Aeta home. 12
Such fact results to an impingement of the rights of the Aetas because there is failure to take into account the cultural integrity of these Indigenous Peoples. B. Scope 1) This paper would like to make a case study on how IPRA has been applied in the context of Aetas relocated and displaced pursuant to laws like Bases Conversion and Development Act of 1992 and those relating to the creation of special economic zones.
2) This paper would focus on IPRA, Bases Conversion and Development Act of 1992 and other related laws and orders which led to the current Clark Special Enonomic Zone and Freeport.
3) This paper would focus on the activities of the government, through the Bases Conversion Development Authority, particularly the CDC, which led to displacement of Aetas not due to natural occurences or disasters.
C. Objectives
1) This paper seeks to identify problematic provisions of relevant laws which results in conflict with other statutes, primarily focusing on IPRA and the Bases Conversion and Development Act of 1992 along with the related laws and orders, and propose amendments thereof.
12 Sitio Target Page | 5
2) This paper further seeks to create a framework that would balance the interests of IPs/ICCs and national development pursued by the government.
D. Methodology
1) The proponents will study the historical context of Aetas in Sacobia Valley and the Clark Special Economic Zone (CSEZ) and Clark Freeport.
2) The proponents will also go through and survey related local case law.
3) In addition, the proponents will research primary and secodary laws related to IPRA and the Bases Conversion and Development Act of 1992.
4) The proponents will conduct interviews.
5) The proponents may also survey analogical international jurisprudence and law.