The Bangsamoro Autonomous Region in Muslim Mindanao (BARMM) is a complex administrative entity that represents a major shift in Philippine governance. This guide explains what BARMM is, which areas are included, and why some cities like Iligan chose to opt out.
What is BARMM? Understanding the Bangsamoro Autonomous Region
BARMM stands for Bangsamoro Autonomous Region in Muslim Mindanao. It’s an autonomous region in the southern Philippines created for Muslim-majority areas of Mindanao through the Bangsamoro Organic Law (BOL), which was signed into law in 2018.
An autonomous region is different from a standard province. Instead of being governed by a provincial governor under the standard national structure, an autonomous region has its own government with special powers granted by the national constitution and laws. These special powers allow greater self-governance and control over internal affairs, revenues, and policy-making.
The creation of BARMM represents the culmination of decades of negotiation between the Philippine national government and Muslim Mindanao groups. It’s the result of the Bangsamoro peace process, which sought to address historical grievances and provide greater autonomy for Muslim-majority areas in the southern Philippines.
BARMM isn’t the first autonomous region in the Philippines. The Cordillera Autonomous Region (CAR) in northern Luzon and the previous Autonomous Region in Muslim Mindanao (ARMM)—which BARMM replaced—preceded it. However, BARMM represents a more comprehensive and constitutionally grounded autonomous structure than its predecessor.
The seat of BARMM’s government is in Cotabato City, where the regional chief minister and regional parliament (Bangsamoro Parliament) operate. This is different from how provinces operate—instead of a governor, an autonomous region has a chief minister who leads the regional government.
Understanding BARMM requires understanding that it’s not simply a province with a different name. It’s a distinct governmental entity with constitutional autonomy, meaning the national government has limited authority over its internal affairs. This autonomy extends to matters of governance, revenue collection, religious freedom, and cultural preservation.
Which Areas are Included in BARMM?
BARMM encompasses specific provinces and cities in Mindanao that voted to be included in the autonomous region through a plebiscite process. Not all Muslim-majority areas of Mindanao are part of BARMM—some chose to remain outside the autonomous region.
Provinces Fully Included in BARMM
Maguindanao (divided into Maguindanao del Norte and Maguindanao del Sur in 2019) forms the core of BARMM. This province is the largest and most heavily Muslim-majority in the region.
Lanao del Sur is included in BARMM. This province shares borders with Iligan City but chose inclusion in the autonomous region, unlike its neighbor Iligan City.
Basilan Province is included, located in the southwestern part of Mindanao and representing the Basilan cultural group within BARMM.
Sulu Province is included in BARMM, further south and representing the Tausug and other Muslim groups in the region.
Tawi-Tawi Province in the southernmost part of the Philippines is included in BARMM, representing the Bajau and Sama-Bajau peoples.
Cities Included in BARMM
Cotabato City is the most significant city within BARMM and serves as the seat of the Bangsamoro government. The regional chief minister’s office and Bangsamoro Parliament are located here.
Marawi City (capital of Lanao del Sur Province) is included in BARMM. Marawi holds historical and cultural significance as a major Muslim center.
Areas That Opted Out
Iligan City is the most prominent example of a city that chose to remain outside BARMM despite being geographically surrounded by BARMM territory. The city voted against inclusion in the plebiscite.
Zamboanga City similarly voted against BARMM inclusion, choosing to remain in Region 9 (Zamboanga Peninsula) under the standard national structure.
Parts of Lanao del Norte remain outside BARMM, with only Lanao del Sur included in the autonomous region.
This opt-out pattern reflects an important reality: BARMM inclusion wasn’t imposed on communities; it was decided through democratic plebiscite processes where residents voted on whether they wanted to be part of the autonomous region.
The Plebiscite Process: How Communities Decided BARMM Inclusion
The decision about which areas would be part of BARMM wasn’t made by the national government alone. Instead, the Bangsamoro Organic Law established a plebiscite process where residents voted on whether their municipalities, cities, and provinces would join the autonomous region.
The plebiscite process occurred in stages. The first plebiscite in 2019 determined whether the parent provinces and initial BARMM cities would be part of the autonomous region. Subsequent plebiscites allowed additional areas to decide whether they wanted to join BARMM or remain outside it.
For each municipality and city, the key question was straightforward: “Do you want to be part of BARMM?” Residents voted yes or no. If a majority voted yes, the area became part of BARMM. If a majority voted no, the area remained outside the autonomous region.
Iligan City’s Plebiscite Decision
In the BARMM plebiscite process, Iligan City residents voted against inclusion in the autonomous region. This decision meant that despite being geographically located in Mindanao and despite having Muslim residents, Iligan City would remain outside BARMM and continue under the standard national government structure, maintaining its highly urbanized city status within Region 10.
This opt-out reflects the preferences of Iligan City’s diverse population and its cosmopolitan, industrial character. The city’s residents decided they preferred to remain under the existing national governance structure rather than join the autonomous region.
Zamboanga City’s Similar Decision
Zamboanga City, another significant urban center with Muslim residents, similarly voted to remain outside BARMM. Like Iligan City, Zamboanga chose to maintain its existing administrative status.
These plebiscite results are democratically binding and have shaped which areas fall under BARMM governance versus which remain under standard provincial/city structures. The plebiscite approach distinguished BARMM’s creation from simply imposing a new administrative structure; it honored local choice about governance preferences.
BARMM Governance Structure: How It Differs from Provinces
BARMM operates under a governance structure that differs significantly from standard Philippine provinces. Understanding these differences clarifies why autonomous region status is distinctive.
The Chief Minister Model
Instead of a governor, BARMM is led by a Chief Minister who serves as the regional chief executive. The Chief Minister is elected (originally appointed, with elections to follow constitutionally) and exercises executive authority over BARMM affairs. This differs from a governor’s role, which operates within the standard provincial administrative framework.
The Bangsamoro Parliament
Rather than a provincial board, BARMM has the Bangsamoro Parliament, which functions as the regional legislative body. The Parliament passes regional laws (called “codes” in BARMM) that apply throughout the autonomous region. This body has broader legislative authority than provincial boards because BARMM has constitutional autonomy.
Revenue and Fiscal Authority
BARMM has its own revenue-generation system distinct from the national internal revenue system. The autonomous region collects its own taxes, manages its own budget, and controls revenue allocation. This fiscal autonomy is a core feature of autonomous region status.
Constitutional Authority
BARMM’s governance is grounded in constitutional provisions (Article X, Section 15 of the Philippine Constitution) and the Bangsamoro Organic Law. This constitutional basis gives BARMM authority that cannot be easily overridden by regular national laws—a key distinction from provinces.
Limited National Oversight
The national government’s authority over BARMM is limited to matters specifically reserved in the constitution and organic law (defense, foreign policy, currency, certain trade matters). BARMM controls most internal affairs, policy-making, and governance matters.
Special Powers
BARMM can enact laws concerning Islamic law (Sharia), personal law matters, religious institutions, and cultural preservation in ways that provinces cannot. These special powers reflect BARMM’s purpose of allowing Muslim-majority communities to govern matters consistent with their religious and cultural traditions.
This governance structure explains why municipalities and cities had to make active choices about BARMM inclusion. Joining BARMM meant accepting a different governance system with different authorities and structures than remaining under standard provincial administration.
Why Did Some Cities Choose to Opt Out? The Iligan City and Zamboanga City Examples
When given the choice through the plebiscite process, some significant Muslim-majority or multi-religious cities—notably Iligan City and Zamboanga City—chose to remain outside BARMM. Understanding their decisions provides insight into how local preferences shaped BARMM’s actual boundaries.
Iligan City’s Opt-Out Decision
Iligan City residents voted against BARMM inclusion, choosing to maintain their status as a highly urbanized independent city within Region 10. Several factors likely influenced this decision:
The city’s highly urbanized, industrial character emphasizes economic development and commerce over religious or cultural governance priorities. Iligan’s focus on industrial operations, manufacturing, and business suggests residents preferred governance frameworks optimized for economic activity.
Iligan City’s cosmopolitan population includes significant Christian and secular residents alongside Muslims. This religious diversity may have influenced preferences toward secular governance structures rather than a region with explicit Islamic law provisions.
The city’s existing independent status as a highly urbanized city provided governance autonomy without joining BARMM. Iligan could maintain self-governance through its existing structure rather than joining a larger autonomous region.
Strong commercial and business networks tied Iligan more closely to Visayan business spheres and the broader Philippines than to regional Muslim-majority governance structures.
Zamboanga City’s Similar Choice
Zamboanga City, another significant urban center with substantial Muslim residents, similarly voted to remain outside BARMM. Zamboanga’s opt-out reflects comparable considerations: the city’s commercial importance, multi-religious character, and preference for governance structures supporting economic activity.
Broader Implications
These opt-out decisions demonstrate that BARMM inclusion wasn’t simply about Muslim majority status or geographic location. Democratic choice, governance preferences, economic priorities, and religious composition all influenced whether communities joined the autonomous region.
Cities that chose BARMM inclusion (like Marawi and Cotabato) often emphasized cultural preservation, Islamic law integration, and regional Muslim identity in their governance priorities. Cities that opted out (like Iligan and Zamboanga) prioritized economic development and secular governance structures.
This pattern reflects a fundamental reality: BARMM represents a specific governance approach suited to communities that prioritize religious and cultural autonomy. Communities with different priorities—like Iligan City’s industrial and commercial focus—could choose alternative governance structures better aligned with their development goals.
BARMM’s Relationship with the National Government
BARMM doesn’t operate completely independently; it functions within the Philippine constitutional framework with defined relationships to the national government. Understanding these relationships clarifies BARMM’s status within the broader Philippine system.
Constitutional Autonomy with National Accountability
BARMM operates with constitutional autonomy in defined areas but remains part of the Philippine state. The national government retains authority over defense, foreign policy, currency, international trade, and other matters reserved constitutionally. BARMM cannot make decisions in these areas independent of national government authority.
The Bangsamoro Organic Law Framework
The BOL establishes the legal framework governing BARMM’s relationship with the national government. It specifies which powers BARMM exercises autonomously, which require national coordination, and which remain with national government exclusively.
Financial Relationships
BARMM has fiscal autonomy for collecting regional revenues and managing regional budgets. However, it also receives national government support for development projects and infrastructure. This represents a partnership model rather than complete financial independence.
National Agency Coordination
National government agencies (for defense, interior, education, health) coordinate with BARMM rather than directing it. This coordination model differs from how national agencies relate to provinces, which operate under national authority.
Constitutional Supreme Court Authority
The Philippine Supreme Court retains authority to review BARMM laws and actions for constitutionality. This oversight applies to BARMM’s special autonomous powers, ensuring they operate within constitutional boundaries.
This national-BARMM relationship represents a middle ground: BARMM has meaningful autonomy in internal affairs while remaining integrated into the Philippine constitutional and national system.
Key Differences: BARMM vs. Regular Provinces
Understanding how BARMM differs from standard provinces clarifies its unique status in Philippine governance.
- Leadership Structure: BARMM is led by a Chief Minister with special autonomous powers, while provinces are led by governors operating under standard provincial authority
- Legislative Authority: BARMM has the Bangsamoro Parliament with constitutional autonomy in specified areas, while provinces have Provincial Boards with authority limited to matters permitted under national law
- Religious Law Integration: BARMM can integrate Islamic law (Sharia) into personal and family matters, while provinces cannot establish religious law systems and must follow national civil code
- Revenue Systems: BARMM has its own revenue collection system and fiscal authority, while provinces participate in national internal revenue system and share revenues with national government
- Constitutional Basis: BARMM is grounded in constitutional provisions establishing autonomy, while provinces operate under national law framework with no constitutional autonomy
- Special Powers: BARMM has constitutional authority to govern matters normally reserved to national government in autonomous areas, while provinces have no special powers and exercise only authority delegated by national government
These differences explain why community votes on BARMM inclusion were necessary. Joining BARMM meant accepting a fundamentally different governance framework, not simply a name change or administrative reorganization.
Practical Implications: Living and Operating in BARMM vs. Outside
For residents, businesses, and government service users, BARMM inclusion versus opt-out creates practical differences in daily governance and official transactions.
Government Service Access
In BARMM areas, residents approach BARMM regional offices for certain services. In non-BARMM areas like Iligan City, residents approach standard provincial or city offices. The bureaucratic structure differs.
Legal Framework
BARMM areas have Islamic law provisions available for personal and family matters for Muslim residents. Non-BARMM areas apply civil code uniformly to all residents regardless of religion.
Business and Investment
BARMM offers special investment incentives and business regulations consistent with its autonomous development authority. Non-BARMM cities like Iligan may offer different incentive structures aligned with national policy.
Religious and Cultural Autonomy
BARMM areas can implement policies reflecting Islamic values and Muslim cultural identity more directly. Non-BARMM areas maintain secular governance regardless of population composition.
Official Documentation
BARMM residents may have documents issued by Bangsamoro government offices; non-BARMM residents receive documents from provincial, city, or regional national government offices.
Regional Development Planning
BARMM operates under the Bangsamoro Development Plan rather than national regional development plans. Non-BARMM cities participate in standard regional planning frameworks.
These practical differences demonstrate that BARMM inclusion fundamentally affects governance experience, not just administrative classification.
Complete List: BARMM Inclusion Status by Province and Major Cities
Fully Included in BARMM
- Maguindanao del Norte
- Maguindanao del Sur
- Lanao del Sur
- Basilan
- Sulu
- Tawi-Tawi
- Cotabato City (regional seat)
- Marawi City
Excluded from BARMM (Near or Historically Connected)
- Iligan City (voted against inclusion)
- Zamboanga City (voted against inclusion)
- Most of Lanao del Norte (remained outside BARMM)
- Misamis Oriental (not BARMM territory)
Regional Classification
- BARMM areas: Autonomous Region in Muslim Mindanao
- Iligan City: Region 10 (Northern Mindanao Region)
- Zamboanga City: Region 9 (Zamboanga Peninsula Region)
Key Takeaways: Understanding BARMM and Its Boundaries
BARMM represents a constitutional approach to governing Muslim-majority areas of Mindanao through democratic autonomy rather than standard provincial administration. Its creation involved plebiscite processes that allowed communities to choose whether to join the autonomous region or remain under standard national governance.
Some significant cities—particularly Iligan City and Zamboanga City—chose to maintain existing governance structures rather than join BARMM. These opt-out decisions demonstrate that BARMM inclusion isn’t determined by geography or Muslim majority status alone, but by local democratic choice and governance preferences.
Understanding which areas are included in BARMM, how BARMM governance differs from provinces, and why some communities opted out provides essential context for understanding Mindanao’s complex administrative landscape and how different governance models serve different community priorities and development goals.
