BARMM Territory: How Barangays Voted Themselves Into the Bangsamoro Region

The Bangsamoro Autonomous Region in Muslim Mindanao (BARMM) did not simply inherit the old ARMM's map. Under the Bangsamoro Organic Law, its territory was fixed through a plebiscite — and certain barangays and municipalities joined only because they voted for inclusion. Specifically, Article III, Section 2 of Republic Act No. 11054 lists the areas that composed the BARMM's territorial jurisdiction, subject to ratification in a plebiscite. These include the old ARMM area, six municipalities in Lanao del Norte, thirty-nine barangays in North Cotabato, the City of Cotabato, and the City of Isabela in Basilan — plus any contiguous area whose local government or voters asked to join.

What the law says about the BARMM's territorial jurisdiction

Article III, Section 1 of RA 11054 defines territorial jurisdiction as the land mass and waters over which the Bangsamoro Autonomous Region has jurisdiction — an integral, indivisible, and inseparable part of the national territory of the Philippines.

Section 2 then sets out the composition of that territory, expressly "subject to the plebiscite as provided in Section 3, Article XV" of the same law. The listed components are:

• The present geographical area known as the ARMM created under Republic Act No. 6734, as amended by Republic Act No. 9054;
• The municipalities of Baloi, Munai, Nunungan, Pantar, Tagoloan, and Tangkal in Lanao del Norte that voted for inclusion in the ARMM during the 2001 plebiscite;
• Thirty-nine barangays in the North Cotabato municipalities of Aleosan, Carmen, Kabacan, Midsayap, Pigkawayan, and Pikit that voted for inclusion in the ARMM during the 2001 plebiscite;
• The City of Cotabato;
• The City of Isabela in Basilan; and
• All other contiguous areas where a resolution of the local government unit, or a petition of at least ten percent (10%) of the registered voters in the area, seeks inclusion at least two (2) months prior to the conduct of the ratification of the Organic Law.

How the 39 North Cotabato barangays are identified

The law does not merely describe these barangays in general terms — it names them by municipality. Under Article III, Section 2(c) of RA 11054, the thirty-nine barangays are:

• Aleosan (3): Dunguan, Lower Mingading, and Tapodoc;
• Carmen (2): Manarapan and Nasapian;
• Kabacan (3): Nanga-an, Simbuhay, and Sanggadong;
• Midsayap (12): Damatulan, Kadigasan, Kapinpilan, Kadarangan, Central Labas, Malingao, Mudseng, Nabalawag, Olandang, Sambulawan, and Tugal;
• Pigkawayan (8): Lower Baguer, Balacayon, Buricain, Datu Binasing, Kadingilan, Matilac, Patot, and Lower Pangangkalan; and
• Pikit (11): Bagoinged, Balatican, S. Balong, S. Balongis, Batulawan, Buliok, Gokotan, Kabasalan, Lagunde, Macabual, and Macasandeg.

The common thread is that each of these areas "voted for inclusion in the Autonomous Region in Muslim Mindanao during the 2001 plebiscite." That 2001 vote was held under Republic Act No. 9140, which fixed the plebiscite for the approval of the amendments under RA 9054 to be held not later than August 15, 2001.

How a new area could ask to join the BARMM

Article III, Section 2(f) of RA 11054 opened the door to contiguous areas beyond the enumerated list. To be considered, the area needed either:

1. A resolution of the local government unit, or
2. A petition of at least ten percent (10%) of the registered voters in the area,

seeking inclusion at least two (2) months prior to the conduct of the ratification of the Organic Law.

This is the provision that allowed adjacent areas to opt in — but only if they acted within the prescribed window and only if the political units directly affected voted favorably in the plebiscite.

The plebiscite requirement: who had to vote in favor

Establishing the BARMM's territorial jurisdiction was not automatic. Under Article III, Section 2 of RA 11054, it took effect only upon ratification of the Organic Law "by majority of the votes cast in the abovementioned territorial jurisdiction in a plebiscite conducted for the purpose."

The same provision adds a crucial qualification: "in all cases, the political units directly affected shall vote favorably in the plebiscite," as provided in Section 3, Article XV of the Organic Law. In plain terms, an area could not be pulled into the Bangsamoro region against its own vote — the directly affected political unit had to approve its own inclusion.

What counts as a constituent unit

Once an area is part of the BARMM, it becomes a constituent unit. Article III, Section 5 of RA 11054 states that the constituent units of the Bangsamoro Autonomous Region are the provinces, cities, municipalities, barangays, and geographical areas within its territorial jurisdiction.

This matters for governance: the Bangsamoro Government exercises authority over its constituent local government units in accordance with the Organic Law and a Bangsamoro local government code to be enacted by the Parliament. Under Article VI, Section 10 of RA 11054, the authority of the Bangsamoro Government to regulate the affairs of its constituent local government units is guaranteed in accordance with the Organic Law and that code, and the privileges already enjoyed by local government units under Republic Act No. 7160, the Local Government Code of 1991, as amended, and other existing laws shall not be diminished.

Frequently asked questions

Can any barangay just decide to join the BARMM now? The inclusion mechanism in Article III, Section 2(f) of RA 11054 was tied to the ratification period — the resolution or petition had to be filed at least two months before the ratification plebiscite. The law also requires that the political units directly affected vote favorably.

Why are only 39 barangays in North Cotabato named in the law? Because those are the specific barangays that voted for inclusion in the ARMM during the 2001 plebiscite, as enumerated in Article III, Section 2(c) of RA 11054. Barangays that did not vote for inclusion were not listed.

What is the effect of being a constituent unit? Constituent units — provinces, cities, municipalities, barangays, and geographical areas within the BARMM — fall within the Bangsamoro Government's territorial jurisdiction, subject to the Organic Law and the Bangsamoro local government code.

Practical takeaways

• The BARMM's territory was fixed by plebiscite, not by simple legislation — Article III, Section 2 of RA 11054 expressly subjects its composition to the plebiscite in Section 3, Article XV.
• Thirty-nine named barangays in six North Cotabato municipalities joined because they voted for ARMM inclusion in the 2001 plebiscite.
• Six Lanao del Norte municipalities joined on the same 2001 plebiscite basis.
• Other contiguous areas could join only through a local government resolution or a petition of at least 10% of registered voters, filed at least two months before ratification.
• In every case, the political units directly affected had to vote favorably for inclusion.

Primary sources

The rules discussed above are drawn from the following primary sources, as published in the Official Gazette and the national statute book.

• REPUBLIC ACT NO. 11054 - AN ACT PROVIDING FOR THE ORGANIC LAW FOR THE BANGSAMORO AUTONOMOUS REGION IN MUSLIM MINDANAO, REPEALING FOR THE PURPOSE REPUBLIC ACT NO. 6734, ENTITLED "AN ACT PROVIDING FOR AN ORGANIC ACT FOR THE AUTONOMOUS REGION IN MUSLIM MINDANAO," AS AMENDED BY REPUBLIC ACT NO. 9054, ENTITLED "AN ACT TO STRENGTHEN AND EXPAND THE ORGANIC ACT FOR THE AUTONOMOUS REGION IN MUSLIM MINDANAO" (REPUBLIC ACT No. 11054)

• REPUBLIC ACT NO. 9140 - AN ACT FIXING THE DATE OF THE PLEBISCITE FOR THE APPROVAL OF THE AMENDMENTS TO REPUBLIC ACT NO. 6734 AND SETTING THE DATE OF THE REGULAR ELECTIONS FOR ELECTIVE OFFICIALS OF THE AUTONOMOUS REGION IN MUSLIM MINDANAO ON THE LAST MONDAY OF NOVEMBER 2001, AMENDING FOR THE PURPOSE REPUBLIC ACT NO. 9054, ENTITLED "AN ACT TO STRENGTHEN AND EXPAND THE ORGANIC ACT FOR THE AUTONOMOUS REGION IN MUSLIM MINDANAO, AMENDING FOR THE PURPOSE REPUBLIC ACT NO. 6734, ENTITLED 'AN ACT PROVIDING FOR THE AUTONOMOUS REGION IN MUSLIM MINDANAO,' AS AMENDED," AND FOR OTHER PURPOSES (REPUBLIC ACT No. 9140)

This article is general information and not legal advice. For your specific situation, consult a lawyer or ask ASG Legal AI.