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1. NATALIA REALTY VS DAR

G.R. No. 103302 August 12, 1993

NATALIA REALTY, INC., AND ESTATE DEVELOPERS AND INVESTORS

CORP., petitioners,vs.

DEPARTMENT OF AGRARIAN REFORM, SEC. BENAMIN T. LEONG !"# DIR.

$ILFREDO LEANO, DAR REGION IV, respondents.

Lino M. Patajo for petitioners.

The Solicitor General for respondents.

BELLOSILLO, J.:

Are lands already classified for residential, commercial or indstrial se, as approved !y t"e

#osin$ and Land %se Re$latory &oard and its precrsor a$encies 1 prior to 1' (ne

1)**, 2 covered !y R.A. ++', ot"er-ise no-n as t"e /ompre"ensive A$rarian Reform La-

of 1)**0 T"is is t"e pivotal isse in t"is petition for certiorari assailin$ t"e Notice of

/overa$e 3 of t"e Department of A$rarian Reform over parcels of land already reserved as

to-nsite areas !efore t"e enactment of t"e la-.

etitioner Natalia Realty, Inc. 2NATALIA, for !revity3 is t"e o-ner of t"ree 243 conti$os parcels of land located in &ana!a, Antipolo, Ri5al, -it" areas of 167.))4 "ectares, 1.467'

"ectares and 6.7*7 "ectares, or a total of 16'.77* "ectares, and em!raced in Transfer

/ertificate of Title No. 41'6 of t"e Re$ister of Deeds of t"e rovince of Ri5al.

8n 1* April 1)), residential roclamation No. 1+4 set aside 67,416 "ectares of land

located in t"e 9nicipalities of Antipolo, San 9ateo and 9ontal!an as to-nsite areas to

a!sor! t"e poplation overspill in t"e metropolis -"ic" -ere desi$nated as t"e Ln$sod

Silan$an To-nsite. T"e NATALIA properties are sitated -it"in t"e areas proclaimed as

to-nsite reservation.

Since private lando-ners -ere allo-ed to develop t"eir properties into lo-:cost "osin$

s!divisions -it"in t"e reservation, petitioner Estate Developers and Investors /orporation

2EDI/, for !revity3, as developer of NATALIA properties, applied for and -as $ranted

preliminary approval and locational clearances !y t"e #man Settlements Re$latory

/ommission. T"e necessary permit for "ase I of t"e s!division pro;ect, -"ic" consisted of

14.641 "ectares, -as issed sometime in 1)*6< % for "ase II, -it" an area of *7,777

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"ectares, on 14 8cto!er 1)*4< & and for "ase III, -"ic" consisted of t"e remainin$ 41.7

"ectares, on 6' April 1)*+. ' etitioner -ere lie-ise issed development permits ( after

complyin$ -it" t"e re=irements. T"s t"e NATALIA properties later !ecame t"e Antipolo

#ills S!division.

8n 1' (ne 1)**, R.A. ++', ot"er-ise no-n as t"e >/ompre"ensive A$rarian Reform La-

of 1)**> 2/ARL, for !revity3, -ent into effect. /onforma!ly t"ere-it", respondent

Department of A$rarian Reform 2DAR, for !revity3, t"ro$" its 9nicipal A$rarian Reform

8fficer, issed on 66 Novem!er 1))7 a Notice of /overa$e on t"e ndeveloped portions of

t"e Antipolo #ills S!division -"ic" consisted of ro$"ly )7.447 "ectares. NATALIA

immediately re$istered its o!;ection to t"e notice of /overa$e.

EDI/ also protested to respondent Director ?ilfredo Leano of t"e DAR Re$ion IV 8ffice

and t-ice -rote "im re=estin$ t"e cancellation of t"e Notice of /overa$e.

8n 1 (anary 1))1, mem!ers of t"e Sama"an n$ 9a$sasaa sa &ndo Antipolo, Inc.

2SA9&A, for t"e !revity3, filed a complaint a$ainst NATALIA and EDI/ !efore t"e DAR

Re$ional Ad;dicator to restrain petitioners from developin$ areas nder cltivation !y

SA9&A mem!ers. ) T"e Re$ional Ad;dicator temporarily restrained petitioners from

proceedin$ -it" t"e development of t"e s!division. etitioners t"en moved to dismiss t"e

complaint< it -as denied. Instead, t"e Re$ional Ad;dicator issed on ' 9arc" 1))1 a ?rit of

reliminary In;nction.

etitioners NATALIA and EDI/ elevated t"eir case to t"e DAR Ad;dication &oard

2DARA&3< "o-ever, on 1+ Decem!er 1))1 t"e DARA& merely remanded t"e case to t"eRe$ional Ad;dicator for frt"er proceedin$s. 9

In t"e interim, NATALIA -rote respondent Secretary of A$rarian Reform reiteratin$ its

re=est to set aside t"e Notice of /overa$e. Neit"er respondent Secretary nor respondent

Director too action on t"e protest:letters, t"s compellin$ petitioners to institte t"is

proceedin$ more t"an a year t"ereafter.

NATALIA and EDI/ !ot" impte $rave a!se of discretion to respondent DAR for incldin$

ndedeveloped portions of t"e Antipolo #ills S!division -it"in t"e covera$e of t"e /ARL.

T"ey ar$e t"at NATALIA properties already ceased to !e a$ricltral lands -"en t"ey -ereinclded in t"e areas reserved !y presidential fiat for t"e to-nsite reservation.

!lic respondents t"ro$" t"e 8ffice of t"e Solicitor @eneral dispte t"is contention. T"ey

maintain t"at t"e permits $ranted petitioners -ere not valid and !indin$ !ecase t"ey did not

comply -it" t"e implementin$ Standards, Rles and Re$lations of .D. )', ot"er-ise

no-n as >T"e S!division and /ondominim &yers rotective Decree,> in t"at no

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application for conversion of t"e NATALIA lands from a$ricltral residential -as ever filed

-it" t"e DAR. In ot"er -ords, t"ere -as no valid conversion. 9oreover, p!lic respondents

alle$e t"at t"e instant petition -as prematrely filed !ecase t"e case institted !y SA9&A

a$ainst petitioners !efore t"e DAR Re$ional Ad;dicator "as not yet terminated. Respondents

conclde, as a conse=ence, t"at petitioners failed to flly e"ast administrative remedies

availa!le to t"em !efore comin$ to cort.

T"e petition is impressed -it" merit. A crsory readin$ of t"e reliminary Approval and

Locational /learances as -ell as t"e Development ermits $ranted petitioners for "ases I, II

and III of t"e Antipolo #ills S!division reveals t"at contrary to t"e claim of p!lic

respondents, petitioners NATALIA and EDI/ did in fact comply -it" all t"e re=irements of

la-.

etitioners first secred favora!le recommendations from t"e Ln$sod Silan$an

Development /orporation, t"e a$ency tased to oversee t"e implementation of t"e

development of t"e to-nsite reservation, !efore applyin$ for t"e necessary permits from t"e

#man Settlements Re$latory

/ommission. 10 And, in all permits $ranted to petitioners, t"e /ommission

stated invaria!ly t"erein t"at t"e applications -ere in >conformance> 11 or >conformity> 12 or

>conformin$> 13 -it" t"e implementin$ Standards, Rles and Re$lations of .D. )'. #ence,

t"e ar$ment of p!lic respondents t"at not all of t"e re=irements -ere complied -it"

cannot !e sstained.

As a matter of fact, t"ere -as even no need for petitioners to secre a clearance or prior

approval from DAR. T"e NATALIA properties -ere -it"in t"e areas set aside for t"eLn$sod Silan$an Reservation. Since residential roclamation No. 1+4 created t"e

to-nsite reservation for t"e prpose of providin$ additional "osin$ to t"e !r$eonin$

poplation of 9etro 9anila, it in effect converted for residential se -"at -ere erst-"ile

a$ricltral lands provided all re=isites -ere met. And, in t"e case at !ar, t"ere -as

compliance -it" all relevant rles and re=irements. Even in t"eir applications for t"e

development of t"e Antipolo #ills S!division, t"e predecessor a$ency of #L%R& noted t"at

petitioners NATALIA and EDI/ complied -it" all t"e re=irements prescri!ed !y .D. )'.

T"e implementin$ Standards, Rles and Re$lations of .D. )' applied to all s!divisions

and condominims in $eneral. 8n t"e ot"er "and, residential roclamation No. 1+4referred only to t"e Ln$sod Silan$an Reservation, -"ic" maes it a special la-. It is a !asic

tenet in stattory constrction t"at !et-een a $eneral la- and a special la-, t"e latter

prevails. 1%

Interestin$ly, t"e 8ffice of t"e Solicitor @eneral does not contest t"e conversion of portions

of t"e Antipolo #ills S!division -"ic" "ave already !een developed. 1& 8f corse, t"is is

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contrary to its earlier position t"at t"ere -as no valid conversion. T"e applications for t"e

developed and ndeveloped portions of s!;ect s!division -ere similarly sitated.

/onse=ently, !ot" did not need prior DAR approval.

?e no- determine -"et"er sc" lands are covered !y t"e /ARL. Section B of R.A. ++'

provides t"at t"e /ARL s"all >cover, re$ardless of tenrial arran$ement and commodity

prodced, all p!lic and private a$ricltral lands.> As to -"at constittes >a$ricltral

land,> it is referred to as >land devoted to a$ricltral activity as defined in t"is Act and not

classified as mineral, forest, residential, commercial or industrial land .> 1' T"e deli!erations

of t"e /onstittional /ommission confirm t"is limitation. >A$ricltral lands> are only t"ose

lands -"ic" are >ara!le and sita!le a$ricltral lands> and >do not include commercial,

industrial and residential lands.> 1(

&ased on t"e fore$oin$, it is clear t"at t"e ndeveloped portions of t"e Antipolo #ills

S!division cannot in any lan$a$e !e considered as >a$ricltral lands.> T"ese lots -ere

intended for residential se. T"ey ceased to !e a$ricltral lands pon approval of t"eir

inclsion in t"e Ln$sod Silan$an Reservation. Even today, t"e areas in =estion contined

to !e developed as a lo-:cost "osin$ s!division, al!eit at a snailCs pace. T"is can readily !e

$leaned from t"e fact t"at SA9&A mem!ers even institted an action to restrain petitioners

from continin$ -it" sc" development. T"e enormity of t"e resorces needed for

developin$ a s!division may "ave delayed its completion !t t"is does not detract from t"e

fact t"at t"ese lands are still residential lands and otside t"e am!it of t"e /ARL.

Indeed, lands not devoted to a$ricltral activity are otside t"e covera$e of /ARL. T"ese

inclde lands previosly converted to non:a$ricltral ses prior to t"e effectivity of /ARL !y $overnment a$encies ot"er t"an respondent DAR. In its Revised Rles and Re$lations

@overnin$ /onversion of rivate A$ricltral Lands to Non:A$ricltral %ses, 1) DAR itself

defined >a$ricltral land> t"s

. . . Agricultural lands refers to t"ose devoted to a$ricltral activity as defined in R.A. ++'

and not classified as mineral or forest !y t"e Department of Environment and Natral

Resorces 2DENR3 and its predecessor a$encies, and not classified in town plans and zoning

ordinances as approved ! the "ousing and Land #se $egulator! %oard &"L#$%' and its

preceding competent authorities prior to () *une (+ for residential , commercial or

indstrial se.

Since t"e NATALIA lands -ere converted prior to 1' (ne 1)**, respondent DAR is !ond

!y sc" conversion. It -as t"erefore error to inclde t"e ndeveloped portions of t"e

Antipolo #ills S!division -it"in t"e covera$e of /ARL.

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&e t"at as it may, t"e Secretary of (stice, respondin$ to a =ery !y t"e Secretary of A$rarian

Reform, noted in an 8pinion 19 t"at lands covered !y residential roclamation No.

1+4, inter alia, of -"ic" t"e NATALIA lands are part, "avin$ !een reserved for to-nsite

prposes >to !e developed as "man settlements !y t"e proper land and "osin$ a$ency,> are

>not deemed Ca$ricltral landsC -it"in t"e meanin$ and intent of Section 4 2c3 of R.A. No.

++'. > Not !ein$ deemed >a$ricltral lands,> t"ey are otside t"e covera$e of /ARL.

Anent t"e ar$ment t"at t"ere -as failre to e"ast administrative remedies in t"e instant

petition, sffice it to say t"at t"e isses raised in t"e case filed !y SA9&A mem!ers differ

from t"ose of petitioners. T"e former involve possession< t"e latter, t"e propriety of incldin$

nder t"e operation of /ARL lands already converted for residential se prior to its

effectivity.

&esides, petitioners -ere not spposed to -ait ntil p!lic respondents acted on t"eir letter:

protests, t"is after sittin$ it ot for almost a year. @iven t"e official indifference, -"ic" nder

t"e circmstances cold "ave contined forever, petitioners "ad to act to assert and protect

t"eir interests. 20

In fine, -e rle for petitioners and "old t"at p!lic respondents $ravely a!sed t"eir

discretion in issin$ t"e assailed Notice of /overa$e of 66 Novem!er 1))7 !y of lands over

-"ic" t"ey no lon$er "ave ;risdiction.

?#ERE8RE, t"e petition for -ertiorari is G$AT/0. T"e Notice of /overa$e of 66

Novem!er 1))7 !y virte of -"ic" ndeveloped portions of t"e Antipolo #ills S!division

-ere placed nder /ARL covera$e is "ere!y SET ASIDE.

S8 8RDERED.

6. EN BANC

*G.R. No. )'))9 + D-/ %, 1990.

192 SCRA &1

L FARMS , Petitioner, vs. T4E 4ONORABLE SECRETARY OF T4E DEPARTMENT

OF AGRARIAN REFORM , Respondent.

D E C I S I O N

PARAS, J.:

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T"is is a petition for pro"i!ition -it" prayer for restrainin$ order andFor preliminary and

permanent in;nction a$ainst t"e #onora!le Secretary of t"e Department of A$rarian Reform for actin$ -it"ot ;risdiction in enforcin$ t"e assailed provisions of R.A. No. ++', ot"er-ise

no-n as t"e /ompre"ensive A$rarian Reform La- of 1)** and in proml$atin$ t"e @idelines

and rocedre Implementin$ rodction and rofit S"arin$ nder R.A. No. ++', insofar as t"esame apply to "erein petitioner, and frt"er from performin$ an act in violation of t"econstittional ri$"ts of t"e petitioner.

As $at"ered from t"e records, t"e factal !ac$rond of t"is case, is as follo-sG

8n (ne 17, 1)**, t"e resident of t"e "ilippines approved R.A. No. ++', -"ic" incldes t"e

raisin$ of livestoc, poltry and s-ine in its covera$e 2Rollo, p. *73.

8n (anary 6, 1)*), t"e Secretary of A$rarian Reform proml$ated t"e @idelines androcedres Implementin$ rodction and rofit S"arin$ as em!odied in Sections 14 and 46 of

R.A. No. ++' 2Rollo, p. *73.

8n (anary ), 1)*), t"e Secretary of A$rarian Reform proml$ated its Rles and Re$lationsimplementin$ Section 11 of R.A. No. ++' 2/ommercial arms3. 2Rollo, p. *13.

L5 arms, petitioner in t"is case, is a corporation en$a$ed in t"e livestoc and poltry !sinessand to$et"er -it" ot"ers in t"e same !siness alle$edly stands to !e adversely affected !y t"e

enforcement of Section 42!3, Section 11, Section 14, Section 1+2d3 and 1 and Section 46 of R.A.

No. ++' ot"er-ise no-n as /ompre"ensive A$rarian Reform La- and of t"e @idelines androcedres Implementin$ rodction and rofit S"arin$ nder R.A. No. ++' proml$ated on

(anary 6, 1)*) and t"e Rles and Re$lations Implementin$ Section 11 t"ereof as proml$ated

!y t"e DAR on (anary ), 1)*) 2Rollo, pp. 6:4+3.G rd

#ence, t"is petition prayin$ t"at aforesaid la-s, $idelines and rles !e declared

nconstittional. 9ean-"ile, it is also prayed t"at a -rit of preliminary in;nction or restrainin$order !e issed en;oinin$ p!lic respondents from enforcin$ t"e same, insofar as t"ey are made

to apply to L5 arms and ot"er livestoc and poltry raisers.

T"is /ort in its Resoltion dated (ly B, 1)4) resolved to deny, amon$ ot"ers, L5 armsC prayer for t"e issance of a preliminary in;nction in its 9anifestation dated 9ay 6+, and 41,

1)*). 2Rollo, p. )*3.

Later, "o-ever, t"is /ort in its Resoltion dated A$st 6B, 1)*) resolved to $rant said 9otion

for Reconsideration re$ardin$ t"e in;nctive relief, after t"e filin$ and approval !y t"is /ort of an in;nction !ond in t"e amont of 177,777.77. T"is /ort also $ave de corse to t"e petition

and re=ired t"e parties to file t"eir respective memoranda 2Rollo, p. 11)3.

T"e petitioner filed its 9emorandm on Septem!er +, 1)*) 2Rollo, pp. 141:1+*3.8n Decem!er 66, 1)*), t"e Solicitor @eneral adopted "is /omment to t"e petition as "is

9emorandm 2Rollo, pp. 1*+:1*3.

L5 arms =estions t"e follo-in$ provisions of R.A. ++', insofar as t"ey are made to apply toitG

2a3 Section 42!3 -"ic" incldes t"e >raisin$ of livestoc 2and poltry3> in t"e definition of

>A$ricltral, A$ricltral Enterprise or A$ricltral Activity.>

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2!3 Section 11 -"ic" defines >commercial farms> as >private a$ricltral lands devoted to

commercial, livestoc, poltry and s-ine raisin$ . . .>

2c3 Section 14 -"ic" calls pon petitioner to eecte a prodction:s"arin$ plan.

2d3 Section 1+2d3 and 1 -"ic" vest on t"e Department of A$rarian Reform t"e at"ority

to smmarily determine t"e ;st compensation to !e paid for lands covered !y t"e/ompre"ensive A$rarian Reform La-.

2e3 Section 46 -"ic" spells ot t"e prodction:s"arin$ plan mentioned in Section 14

>. . . 2?3"ere!y t"ree percent 24H3 of t"e $ross sales from t"e prodction of sc" lands

are distri!ted -it"in sity 2+73 days of t"e end of t"e fiscal year as compensation tore$lar and ot"er farm-orers in sc" lands over and a!ove t"e compensation t"ey

crrently receiveG rovided, T"at t"ese individals or entities reali5e $ross sales in ecess

of five million pesos per annm nless t"e DAR, pon proper application, determine alo-er ceilin$.

In t"e event t"at t"e individal or entity reali5es a profit, an additional ten 217H3 of t"e

net profit after ta s"all !e distri!ted to said re$lar and ot"er farm-orers -it"in ninety2)73 days of t"e end of t"e fiscal year . . .>

T"e main isse in t"is petition is t"e constittionality of Sections 42!3, 11, 14 and 46 of R.A. No.++' 2t"e /ompre"ensive A$rarian Reform La- of 1)**3, insofar as t"e said la- incldes t"e

raisin$ of livestoc, poltry and s-ine in its covera$e as -ell as t"e Implementin$ Rles and

@idelines proml$ated in accordance t"ere-it".G:crala-

T"e constittional provision nder consideration reads as follo-sG

ARTI/LE III

A@RARIAN AND NAT%RAL RES8%R/ES RE8R9Section B. T"e State s"all, !y la-, ndertae an a$rarian reform pro$ram fonded on t"e

ri$"t of farmers and re$lar farm-orers, -"o are landless, to o-n directly or

collectively t"e lands t"ey till or, in t"e case of ot"er farm-orers, to receive a ;st s"areof t"e frits t"ereof. To t"is end, t"e State s"all encora$e and ndertae t"e ;st

distri!tion of all a$ricltral lands, s!;ect to sc" priorities and reasona!le retention

limits as t"e /on$ress may prescri!e, tain$ into accont ecolo$ical, developmental, or e=ity considerations, and s!;ect to t"e payment of ;st compensation. In determinin$

retention limits, t"e State s"all respect t"e ri$"ts of small lando-ners. T"e State s"all

frt"er provide incentives for volntary land:s"arin$.

>L5 arms contended t"at it does not see t"e nllification of R.A. ++' in its entirety. Infact, it acno-led$es t"e correctness of t"e decision of t"is /ort in t"e case of t"e

Association of Small Lando-ners in t"e "ilippines, Inc. vs. Secretary of A$rarian

Reform [email protected]. *B6, 1B (ly 1)*)3 affirmin$ t"e constittionality of t"e /ompre"ensiveA$rarian Reform La-. It, "o-ever, ar$ed t"at /on$ress in enactin$ t"e said la- "as

transcended t"e mandate of t"e /onstittion, in incldin$ land devoted to t"e raisin$ of

livestoc, poltry and s-ine in its covera$e 2Rollo, p. 1413. Livestoc or poltry raisin$

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is not similar to crop or tree farmin$. Land is not t"e primary resorce in t"is ndertain$

and represents no more t"an five percent 2'H3 of t"e total investment of commercial

livestoc and poltry raisers. Indeed, t"ere are many o-ners of residential lands all over t"e contry -"o se availa!le space in t"eir residence for commercial livestoc and

raisin$ prposes, nder >contract:$ro-in$ arran$ements,> -"ere!y processin$

corporations and ot"er commercial livestoc and poltry raisers 2Rollo, p. 173. Landsspport t"e !ildin$s and ot"er amenities attendant to t"e raisin$ of animals and !irds.

T"e se of land is incidental to !t not t"e principal factor or consideration in

prodctivity in t"is indstry. Incldin$ !acyard raisers, a!ot *7H of t"ose incommercial livestoc and poltry prodction occpy five "ectares or less. T"e remainin$

67H are mostly corporate farms 2Rollo, p. 113.

8n t"e ot"er "and, t"e p!lic respondent ar$ed t"at livestoc and poltry raisin$ is em!raced in

t"e term >a$ricltre> and t"e inclsion of sc" enterprise nder Section 42!3 of R.A. ++' is proper. #e cited t"at ?e!sterCs International Dictionary, Second Edition 21)'B3, defines t"e

follo-in$ -ordsG

>A$ricltre t"e art or science of cltivatin$ t"e $rond and raisin$ and "arvestin$

crops, often, incldin$ also, feedin$, !reedin$ and mana$ement of livestoc, tilla$e,"s!andry, farmin$.

It incldes farmin$, "orticltre, forestry, dairyin$, s$armain$ . . .

Livestoc domestic animals sed or raised on a farm, especially for profit.

arm a plot or tract of land devoted to t"e raisin$ of domestic or ot"er animals.> 2Rollo, pp.

*6:*43.

T"e petition is impressed -it" merit.

T"e =estion raised is one of constittional constrction. T"e primary tas in constittional

constrction is to ascertain and t"ereafter assre t"e reali5ation of t"e prpose of t"e framers int"e adoption of t"e /onstittion 2(.9. Ta5on J /o. vs. Land Tenre Administration, 41 S/RA

B14 K1)73.G rd

Ascertainment of t"e meanin$ of t"e provision of /onstittion !e$ins -it" t"e lan$a$e of t"edocment itself. T"e -ords sed in t"e /onstittion are to !e $iven t"eir ordinary meanin$

ecept -"ere tec"nical terms are employed in -"ic" case t"e si$nificance t"s attac"ed to t"em

prevails 2(.9. Ta5on J /o. vs. Land Tenre Administration, 41 S/RA B14 K1)73.

It is $enerally "eld t"at, in constrin$ constittional provisions -"ic" are am!i$os or of do!tfl meanin$, t"e corts may consider t"e de!ates in t"e constittional convention as

t"ro-in$ li$"t on t"e intent of t"e framers of t"e /onstittion. It is tre t"at t"e intent of t"e

convention is not controllin$ !y itself, !t as its proceedin$ -as preliminary to t"e adoption !yt"e people of t"e /onstittion t"e nderstandin$ of t"e convention as to -"at -as meant !y t"e

terms of t"e constittional provision -"ic" -as t"e s!;ect of t"e deli!eration, $oes a lon$ -ay

to-ard eplainin$ t"e nderstandin$ of t"e people -"en t"ey ratified it 2A=ino, (r. v. Enrile, ')

S/RA 1*4 K1)B3.

T"e transcripts of t"e deli!erations of t"e /onstittional /ommission of 1)*+ on t"e meanin$ of

t"e -ord >a$ricltral,> clearly s"o- t"at it -as never t"e intention of t"e framers of t"e

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/onstittion to inclde livestoc and poltry indstry in t"e covera$e of t"e constittionally:

mandated a$rarian reform pro$ram of t"e @overnment.

T"e /ommittee adopted t"e definition of >a$ricltral land> as defined nder Section 1++ of R.A. 4*BB, as lad devoted to any $ro-t", incldin$ !t not limited to crop lands, salt!eds,

fis"ponds, idle and a!andoned land 2Record, /8N/89, A$st , 1)*+, Vol. III, p. 113.

T"e intention of t"e /ommittee is to limit t"e application of t"e -ord >a$ricltre.>

/ommissioner (amir proposed to insert t"e -ord >ARA&LE> to distin$is" t"is ind of a$ricltral land from sc" lands as commercial and indstrial lands and residential properties

!ecase all of t"em fall nder t"e $eneral classification of t"e -ord >a$ricltral>. T"is proposal,

"o-ever, -as not considered !ecase t"e /ommittee contemplated t"at a$ricltral lands are

limited to ara!le and sita!le a$ricltral lands and t"erefore, do not inclde commercial,indstrial and residential lands 2Record, /8N/89, A$st , 1)*+, Vol. III, p. 473.

In t"e interpellation, t"en /ommissioner Re$alado 2no- a Spreme /ort (stice3, posed several

=estions, amon$ ot"ers, =oted as follo-sG

>Line 1) refers to $enine reform pro$ram fonded on t"e primary ri$"t of farmers andfarm-orers. I -onder if it means t"at lease"old tenancy is t"ere!y proscri!ed nder t"is

provision !ecase it speas of t"e primary ri$"t of farmers and farm-orers to o-n

directly or collectively t"e lands t"ey till. As also mentioned !y /ommissioner Tadeo,farm-orers inclde t"ose -"o -or in pi$$eries and poltry pro;ects.

I -as -onderin$ -"et"er I am -ron$ in my appreciation t"at if some!ody pts p a

pi$$ery or a poltry pro;ect and for t"at prpose "ires farm-orers t"erein, t"ese

farm-orers -ill atomatically "ave t"e ri$"t to o-n eventally, directly or ltimately or collectively, t"e land on -"ic" t"e pi$$eries and poltry pro;ects -ere constrcted.

2Record, /8N/89, A$st 6, 1)*+, p. +1*3.

T"e =estions -ere ans-ered and eplained in t"e statement of t"en /ommissioner

Tadeo, =oted as follo-sG

>Sa pan$ala-an$ atann$an n$ @inoo ay medyo "indi ami na$ana-aan. Ipinaaalamo ay /ommissioner Re$alado na "indi namin inila$ay an$ a$ricltral -orer sa

ada"ilanan$ asama rito an$ pi$$ery, poltry at livestoc -orers. An$ inila$ay namin

dito ay farm -orer aya "indi asama an$ pi$$ery, poltry at livestoc -orers2Record, /8N/89, A$st 6, 1)*+, Vol. II, p. +613.

It is evident from t"e fore$oin$ discssion t"at Section II of R.A. ++' -"ic" incldes >privatea$ricltral lands devoted to commercial livestoc, poltry and s-ine raisin$> in t"e definition

of >commercial farms> is invalid, to t"e etent t"at t"e aforecited a$ro:indstrial activities aremade to !e covered !y t"e a$rarian reform pro$ram of t"e State. T"ere is simply no reason to

inclde livestoc and poltry lands in t"e covera$e of a$rarian reform. 2Rollo, p. 613.

#ence, t"ere is merit in L5 armsC ar$ment t"at t"e re=irement in Sections 14 and 46 of R.A.

++' directin$ >corporate farms> -"ic" inclde livestoc and poltry raisers to eecte and

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implement >prodction:s"arin$ plans> 2pendin$ final redistri!tion of t"eir land"oldin$s3

-"ere!y t"ey are called pon to distri!te from t"ree percent 24H3 of t"eir $ross sales and ten

percent 217H3 of t"eir net profits to t"eir -orers as additional compensation is nreasona!le for !ein$ confiscatory, and t"erefore violative of de process 2Rollo, p. 613.G:crala-

It "as !een esta!lis"ed t"at t"is /ort -ill assme ;risdiction over a constittional =estion only

if it is s"o-n t"at t"e essential re=isites of a ;dicial in=iry into sc" a =estion are firstsatisfied. T"s, t"ere mst !e an actal case or controversy involvin$ a conflict of le$al ri$"tssscepti!le of ;dicial determination, t"e constittional =estion mst "ave !een opportnely

raised !y t"e proper party, and t"e resoltion of t"e =estion is navoida!ly necessary to t"e

decision of t"e case itself 2Association of Small Lando-ners of t"e "ilippines, Inc. v. Secretaryof A$rarian Reform, @.R. *B6< Acna v. Arroyo, @.R. )417< a!ico v. (ico, @.R. )BB<

9anaay v. (ico, @.R. ), 1B (ly 1)*), 1' S/RA 4B43.

#o-ever, despite t"e in"i!itions pressin$ pon t"e /ort -"en confronted -it" constittional

isses, it -ill not "esitate to declare a la- or act invalid -"en it is convinced t"at t"is mst !edone. In arrivin$ at t"is conclsion, its only criterion -ill !e t"e /onstittion and @od as its

conscience $ives it in t"e li$"t to pro!e its meanin$ and discover its prpose. ersonal motives

and political considerations are irrelevancies t"at cannot inflence its decisions. &landis"ment isas ineffectal as intimidation, for all t"e a-esome po-er of t"e /on$ress and Eective, t"e

/ort -ill not "esitate >to mae t"e "ammer fall "eavily,> -"ere t"e acts of t"ese departments, or

of any official, !etray t"e peopleCs -ill as epressed in t"e /onstittion 2Association of Small

Lando-ners of t"e "ilippines, Inc. v. Secretary of A$rarian Reform, @.R. *B6< Acna v.Arroyo, @.R. )417< a!ico v. (ico, @.R. )BB< 9anaay v. (ico, @.R. ), 1B (ly 1)*)3.

T"s, -"ere t"e le$islatre or t"e eective acts !eyond t"e scope of its constittional po-ers, it

!ecomes t"e dty of t"e ;diciary to declare -"at t"e ot"er !ranc"es of t"e $overnment "ad

assmed to do, as void. T"is is t"e essence of ;dicial po-er conferred !y t"e /onstittion >2I3none Spreme /ort and in sc" lo-er corts as may !e esta!lis"ed !y la-> 2Art. VIII, Section 1

of t"e 1)4' /onstittion< Article , Section I of t"e 1)4 /onstittion and -"ic" -as adopted as part of t"e reedom /onstittion, and Article VIII, Section 1 of t"e 1)* /onstittion3 and -"ic" po-er t"is /ort "as eercised in many instances 2Demetria v. Al!a, 1B* S/RA 67* K1)*3.

RE9ISES /8NSIDERED, t"e instant petition is "ere!y @RANTED. Sections 42!3, 11, 14 and

46 of R.A. No. ++' insofar as t"e inclsion of t"e raisin$ of livestoc, poltry and s-ine in its

covera$e as -ell as t"e Implementin$ Rles and @idelines proml$ated in accordancet"ere-it", are "ere!y DE/LARED nll and void for !ein$ nconstittional and t"e -rit of

preliminary in;nction issed is "ere!y 9ADE permanent.

S8 8RDERED.

4. *G.R. No. 139&92. O-to/ &, 2000

REPBLIC OF T4E P4ILIPPINES 5. /6 t7 DEPARTMENT OF AGRARIAN

REFORM, petitioner, vs. 4ON. CORT OF APPEALS !"# GREEN CITY ESTATE

8 DEVELOPMENT CORPORATION, respondents.

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D E C I S I O N

GONAGAREYES, J .+

T"is is a petition for revie- !y certiorari of t"e DecisionK1 of t"e /ort of Appeals dated

Decem!er ), 1))* t"at reversed t"e 8rder of petitioner, t"e Department of A$rarian Reform2petitioner DAR3, !y eemptin$ t"e parcels of land of private respondent @reen /ity Estate and

Development /orporation 2private respondent3 from a$rarian reform. Also assailed in t"is instant

petition is t"e Resoltion dated 9ay 11, 1))* issed !y t"e same cort t"at denied t"e 9otion

for Reconsideration of petitioner DAR.

T"e five parcels of land in isse "as a com!ined area of approimately 116.7' "ectares

sitated at &aran$ay nta, 9nicipality of (ala:(ala, rovince of Ri5al, covered !y Transfer

/ertificates of Title Nos. 9:B'*'+, 9:B'*', 9:B'*'*, 9:B'*') and 9:B'*+7 of t"e Re$ister

of Deeds of Ri5al. rivate respondent ac=ired t"e land !y prc"ase on 9ay 6+, 1))B from

9arcela &or;a vda. De Torres. T"e ta declarations classified t"e properties as a$ricltral.

8n (ne 1+, 1))B, petitioner DAR issed a Notice of /overa$e of t"e s!;ect parcels of land

nder complsory ac=isition prsant to Section , /"apter II of R.A. ++' or t"e

/ompre"ensive Land Reform La- of 1))* 2/ARL3.

8n (ly 61, 1))B, private respondent filed -it" t"e DAR Re$ional 8ffice an application for

eemption of t"e land from a$rarian reform, prsant to DAR Administrative 8rder No. +, series

of 1))BK6 and D8( 8pinion No. BB, series of 1))7. Administrative 8rder No. + provides t"e

$idelines for eemption from t"e /ompre"ensive A$rarian Reform ro$ram 2/AR3 covera$e

-"ile D8( 8pinion No. BB, Series of 1))7, at"ori5es t"e DAR to approve conversion of

a$ricltral lands covered !y RA ++'1 to non:a$ricltral ses effective (ne 1' 1)**.

In spport of its application for eemption, private respondent s!mitted t"e follo-in$

docmentsG

1. /ertified p"otocopies of t"e titles and ta declarations.

6. Vicinity and location plans.

4. /ertification of t"e 9nicipal lannin$ and Development /oordinator of t"e 8ffice of t"e

9ayor of (ala:(ala.

B. Resoltion No. R:4+, series of 1)*1 of t"e #L%R&.

'. /ertification from t"e National Irri$ation Administration.

http://sc.judiciary.gov.ph/jurisprudence/2000/oct2000/139592.htm#_edn1




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8n 8cto!er 16, 1))B, t"e DAR Re$ional Director recommended a denial of t"e said

petition, on t"e $rond t"at private respondent Mfailed to s!stantiate t"eir 2sic3 alle$ation t"at

t"e properties are indeed in t"e mnicipalitys residential and forest conservation 5one and t"at

portions of t"e properties are not irri$ated nor irri$a!leO.

8n e!rary 1', 1))', private respondent filed an Amended etition for

EemptionFEclsion from /AR covera$e. T"is time, private respondent alle$ed t"at t"e

property s"old !e eempted since it is -it"in t"e residential and forest conservation 5ones of

t"e to-n planF5onin$ ordinance of (ala:(ala. T"e amended petition for eemption s"o-ed t"at a

portion of a!ot 1' "ectares of t"e land is irri$ated riceland -"ic" private respondent offered to

sell to t"e farmer !eneficiaries or to t"e DAR. In spport of its amended petition, private

respondent s!mitted t"e follo-in$ additional docmentsG

1. /ertification letter from t"e #L%R& t"at t"e specific properties are -it"in t"e residential

and forest conservation 5one.

6. /ertification from t"e #L%R& t"at t"e to-n planF5onin$ ordinance of (ala:(ala -as

approved on Decem!er 6, 1)*1 !y t"e #man Settlements /ommission.

4. %ndertain$ t"at t"e lando-ner is ready and -illin$ to pay distr!ance compensation to

t"e tenants for sc" amont as may !e a$reed pon or directed !y t"e DAR.

B. Vicinity plan.

'. Amended srvey plan -"ic" indicates t"e irri$ated riceland t"at is no- eclded from t"e

application.

+. /ertification of t"e (ala:(ala 9nicipal lannin$ and Development /oordinator to t"e

effect t"at t"e properties covered are -it"in t"e residential and forest conservation areas

prsant to t"e 5onin$ ordinance of (ala:(ala.

8n 8cto!er 1), 1))', t"e DAR Secretary issed an 8rder denyin$ t"e application for

eemption of private respondent, on t"e $ronds t"at t"e land se plan of (ala:(ala, -"ic" differs

from its land se map, intends to develop 4H of &aran$ay nta into an a$ricltral 5one< t"at

t"e certification issed !y t"e #osin$ and Land %se Re$latory &oard 2#L%R&3 is not definite

and specific< and t"at t"e certification issed !y t"e National Irri$ation At"ority 2NIA3 t"at t"e

area is not irri$ated nor pro$rammed for irri$ation, is not conclsive on t"e DAR, since !i$ areas

in t"e mnicipality are recipients of (I/A:fnded Inte$rated (ala:(ala Rral Development

ro;ects. T"e motion for reconsideration filed !y private respondent -as lie-ise denied !y t"e

DAR Secretary.

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rivate respondent t"en appealed to t"e /ort of Appeals. Drin$ t"e corse of t"e appeal,

said cort created a commission composed of t"ree 243 mem!ers tased to condct an oclar

inspection and srvey of t"e s!;ect parcels of land and to s!mit a report on t"e reslt of sc"

inspection and srvey. To verify t"e report of t"e commission, t"e DAR constitted its o-n team

to inspect and report on t"e property in =estion. T"e verification report of t"e DAR, dly filed

-it" t"e /ort of Appeals, o!;ected to t"e report of t"e commission mainly de to t"e lac of

specific !ondaries delineatin$ t"e srveyed areas.

8n Decem!er ), 1))*, t"e /ort of Appeals issed its Decision t"at reversed t"e assailed

DAR orders, t"e dispositive portion of -"ic" readsG

M?#ERE8RE, t"e 8rders of t"e respondent Secretary dated 8cto!er 1), 1))' and Novem!er

1', 1))' are "ere!y REVERSED, and ;d$ement is "ere!y rendered declarin$ t"ose portions of

t"e land of t"e petitioner -"ic" are montainos and residential, as fond !y t"e /orts 2sic3

commissioners, to !e eempt from t"e /ompre"ensive A$rarian Reform ro$ram, s!;ect to

t"eir delineation. T"e records of t"is case are "ere!y ordered remanded to t"e respondent

Secretary for frt"er proceedin$s in t"e determination of t"e !ondaries of t"e said areas.OK4

#ence t"is petition for revie- -"erein petitioner DAR sees t"e reversal of t"e fore$oin$

decision on t"e $rond t"at t"e "onora!le /ort of Appeals erredG

1. ?#EN IT R%LED T#AT T#ERE ?AS N8 DEINITE /LASSII/ATI8N 8 T#E

R8ERTIES INV8LVED ?#EN, ER T#E /8RRES8NDIN@ TA

DE/LARATI8NS, T#EY ARE @ENERALLY /LASSIIED AS A@RI/%LT%RAL.

6. ?#EN IT R%LED T#AT T#E #YSI/AL EAT%RES 8 T#E LAND AS 8 1)*7

8R &E8RE AS AEARIN@ IN TA&LE 4:4 8 T#E P8NIN@ 8RDINAN/E IS

T#E RESENT /LASSII/ATI8N 8 T#E LAND#8LDIN@S INV8LVED< and

4. ?#EN IT 9ADE A R%LIN@ 8N #8? S%&(E/T LAND#8LDIN@ &E /LASSIIED

2?#ET#ER /8VERED &Y A@RARIAN RE8R9 8R &EIN@ A@RI/%LT%RAL

LAND 8R N8T3 AND DIS8SED 8 S8LELY 8N T#E &ASIS 8 T#E #YSI/AL

/8NDITI8N 8 T#E LAND IRRESE/TIVE 8 T#E LE@AL ISS%E RAISED 8N

T#EIR LE@AL /LASSII/ATI8N, A %N/TI8N T#AT IS VESTED IN

/[email protected]

T"e petition "as no merit.

Rep!lic Act No. ++' ot"er-ise no-n as t"e /ompre"ensive A$rarian Reform La-

2/ARL3 of 1))* covers all p!lic and private a$ricltral lands. T"e same la- defines





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a$ricltral as Mland devoted to a$ricltral activity as defined in t"is Act and not classified as

mineral, forest, residential, commercial or industrial land O.K'

rivate respondent so$"t eemption from t"e covera$e of /ARL on t"e $rond t"at its five

parcels of land are not -"olly a$ricltral. T"e land se map of t"e mnicipality, certified !y t"e

8ffice of t"e 9nicipal lannin$ and Development /oordinator 29D/3 of (ala:(ala and t"e

report of t"e commission constitted !y t"e /ort of Appeals esta!lis"ed t"at t"e properties lie

mostly -it"in t"e residential and forest conservation 5one.

etitioner DAR maintains t"at t"e s!;ect properties "ave already !een classified as

a$ricltral !ased on t"e ta declarations.K+ T"e 8ffice of t"e Solicitor @eneral 28S@3 and

petitioner DAR are one in contendin$ t"at t"e classification of lands once determined !y la-

may not !e varied or altered !y t"e reslts of a mere oclar or aerial inspection.K

?e are na!le to sstain petitioners contention. T"ere is no la- or ;risprdence t"at "olds

t"at t"e land classification em!odied in t"e ta declarations is conclsive and final nor -old

proscri!e any frt"er in=iry. rt"ermore, t"e ta declarations are clearly not t"e sole !asis of

t"e classification of a land. In fact, DAR Administrative 8rder No. + lists ot"er docments, aside

from ta declarations, t"at mst !e s!mitted -"en applyin$ for eemption from /AR.K* In "alili vs. -ourt of AppealsK), -e sstained t"e trial cort -"en it rled t"at t"e classification

made !y t"e Land Re$latory &oard of t"e land in =estion ot-ei$"ed t"e classification stated

in t"e ta declaration. T"e classification of t"e &oard in said case -as more recent t"an t"at of

t"e ta declaration and -as !ased on t"e present condition of t"e property and t"e commnity

t"ereat.K17

In t"is case, t"e /ort of Appeals -as constrained to resort to an oclar inspection of said

properties t"ro$" t"e commission it created considerin$ t"at t"e opinion of petitioner DAR

conflicted -it" t"e land se map s!mitted in evidence !y private respondent. Respondent cort

also noted t"at even from t"e !e$innin$ t"e properties of private respondent "ad no definite

delineation and classification.K11 #ence, t"e srvey of t"e properties t"ro$" t"e cort appointed

commissioners -as t"e ;dicios and e=ita!le soltion to finally resolve t"e isse of land

classification and delineation.

T"e 8S@ stresses t"at to !e eempt from /AR nder D8( 8pinion No. BB, t"e land mst

"ave !een classified as indstrialFresidential !efore (ne 1', 1)**.K16

&ased on t"is premise, t"e8S@ points ot t"at no sc" classification -as presented ecept t"e mnicipalitys alle$ed land

se map in 1)*7 s"o-in$ t"at s!;ect parcels of land fall -it"in t"e mnicipalitys forest

conservation 5one.K14 T"e 8S@ frt"er ar$es t"at assmin$ t"at a c"an$e in t"e se of t"e

s!;ect properties in 1)*7 may ;stify t"eir eemption from /AR nder D8( 8pinion No. BB,

sc" land se of 1)*7 -as, nevert"eless, repealedFamended -"en t"e #L%R& approved t"e

mnicipalitys /ompre"ensive Development lan for &aran$ay nta for t"e years 1)*7 to 6777



















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in its Resoltion No. 44, series of 1)*1.K1B T"e plan for &aran$ay nta, -"ere t"e parcels of

land in isse are located, alle$edly envision t"e development of t"e !aran$ay into a pro$ressive

a$ricltral commnity -it" t"e limited allocation of only '1 "ectares for residential se and

none for commercial and forest conservation 5one se.K1'

T"e fore$oin$ ar$ments are ntena!le. ?e are in fll a$reement -it" respondent /ort

-"en it rationali5ed t"at t"e land se map is t"e more appropriate docment to consider, t"sG

MT"e petitioner 2"erein private respondent3 presented a development plan of t"e 9nicipality of

(ala:(ala, -"ic" -as approved !y t"e #osin$ and Land %se Re$latory &oard 2#L%R&3 on

Decem!er 6, 1)*1. It also presented certifications from t"e #L%R& and t"e 9nicipal lannin$

and Development /oordinator of (ala:(ala t"at t"e s!;ect properties fall -it"in t"e Residential

and orest /onservation 5ones of t"e mnicipality. Etant on t"e record is a color:coded land se

map of (ala:(ala, s"o-in$ t"at t"e petitioners land falls mostly -it"in t"e Residential and orest

/onservation 5ones. T"is not-it"standin$, t"e respondent Secretary of A$rarian Reform denied

t"e petitioners application on t"e $rond t"at t"e to-n plan of t"e mnicipality, particlarly

Ta!le B:B t"ereof, s"o-s t"at &aran$ay nta is intended to remain and to !ecome a pro$ressive

a$ricltral commnity in vie- of t"e a!ndance of fertile a$ricltral areas in t"e !aran$ay, and

t"at t"ere is a discrepancy !et-een t"e land se map -"ic" identifies a "$e forest conservation

5one and t"e land se plan -"ic" "as no area classified as forest conservation.

#o-ever, a closer loo at t"e development plan for t"e mnicipality of (ala:(ala s"o-s t"at Ta!le

B:B does not represent t"e present classification of land in t"at mnicipality, !t t"e proposed

land se to !e ac"ieved. T"e eistin$ land se as of 1)*7 is s"o-n !y Ta!le 4:4, -"erein

&aran$ay nta is s"o-n to "ave a forest area of 4' "ectares and open $rassland 2-"ic" -asformerly forested area3 of '+ "ectares. T"e land se map is consistent -it" t"is.O K1+

9oreover, t"e commissioners report on t"e actal condition of t"e properties confirms t"e

fact t"at t"e properties are not -"olly a$ricltral. In essence, t"e report of t"e commission

s"o-ed t"at t"e land of private respondent consists of a montainos area -it" an avera$e 6*

de$ree slope containin$ ++.' "ectares< a level, nirri$ated area of 4B "ectares of -"ic" ' to +

"ectares are planted to palay< and a residential area of * "ectares. K1 T"e findin$ t"at ++.'

"ectares of t"e 116.7' "ectares of land of private respondent "ave an avera$e slope of 6*

de$rees provides anot"er co$ent reason to eempt t"ese portions of t"e properties from t"e

/ARL. Section 17 of t"e /ARL is clear on t"is point -"en it provides t"at Mall lands -it"ei$"teen percent 21*H3 slope and over, ecept t"ose already developed s"all !e eempt from t"e

covera$e of t"is ActO.

etitioner DAR and t"e 8S@ contest t"e findin$ of t"e /ort of Appeals t"at t"e s!;ect

parcels of land "ave a montainos slope on t"e $rond t"at t"is conclsion -as alle$edly

arrived at in a manner not in accord -it" esta!lis"ed srveyin$ procedres. K1* T"ey also !e-ail













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t"e consideration $iven !y t"e /ort of Appeals to t"e MslopeO isse since t"is matter -as

alle$edly never raised !efore t"e DAR and t"e /ort of Appeals. K1) etitioner DAR and t"e 8S@

t"s claim t"at lac"es "ad already set in. K67

As pointed ot earlier, t"e cr of t"e controversy is -"et"er t"e s!;ect parcels of land in

isse are eempt from t"e covera$e of t"e /ARL. T"e determination of t"e classification and

p"ysical condition of t"e lands is t"erefore material in t"e disposition of t"is case, for -"ic"

prpose t"e /ort of Appeals constitted t"e commission to inspect and srvey said

properties.etitioner DAR did not o!;ect to t"e creation of a team of commissionersK61 -"en it

very -ell ne- t"at t"e srvey and oclar inspection -old eventally involve t"e determination

of t"e slope of t"e s!;ect parcels of land. It is t"e protestation of petitioner t"at comes at a

!elated "or. T"e team of commissioners appointed !y respondent cort -as composed persons

-"o -ere mtally accepta!le to t"e parties.K66 T"s, in t"e a!sence of any irre$larity in t"e

srvey and inspection of t"e s!;ect properties, and none is alle$ed, t"e report of t"e

commissioners deserves fll fait" and credit and -e find no reversi!le error in t"e reliance !y t"eappellate cort pon said report.

$4EREFORE, t"e petition is "ere!y DENIED. T"e c"allen$ed Decision is AIR9ED.

SO ORDERED.

%. G.R. No. 100091 O-to/ 22, 1992

CENTRAL MINDANAO NIVERSITY REPRESENTED ITS PRESIDENT DR.

LEONARDO A. C4A, petitioner,

vs.

T4E DEPARTMENT OF AGRARIAN REFORM ADDICATION BOARD, T4E

CORT OF APPEALS !"# ALVIN OBRI:E, REPRESENTING B;IDNON FREE

FARMERS AGRICLTRAL LABORERS ORGANIATION <BFFALO=, respondents.

CAMPOS, R., J.:

T"is is a etition for Revie- on -ertiorari nder Rle +' of t"e Rles of /ort to nllify t"e

proceedin$s and decision of t"e Department of A$rarian Reform Ad;dication &oard 2DARA&

for !revity3 dated Septem!er B, 1)*) and to set aside t"e decision t"e decision Q of t"e /ort of

Appeals dated A$st 67, 1))7, affirmin$ t"e decision of t"e DARA& -"ic" ordered t"e

se$re$ation of B77 "ectares of sita!le, compact and conti$os portions of t"e /entral

9indanao %niversity 2/9% for !revity3 land and t"eir inclsion in t"e /ompre"ensive A$rarian











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Reform ro$ram 2/AR for !revity3 for distri!tion to =alified !eneficiaries, on t"e $rond of

lac of ;risdiction.

T"is case ori$inated in a complaint filed !y complainants callin$ t"emselves as t"e &idnon

ree armers and A$ricltral La!orers 8r$ani5ation 2&%AL8 for !revity3 nder t"e

leaders"ip of Alvin 8!ri=e and Lis #ermoso a$ainst t"e /9%, !efore t"e Department of

A$rarian Reform for Declaration of Stats as Tenants, nder t"e /AR.

rom t"e records, t"e follo-in$ facts are evident. T"e petitioner, t"e /9%, is an a$ricltral

edcational instittion o-ned and rn !y t"e state located in t"e to-n of 9san, &idnon

province. It started as a farm sc"ool at 9arilan$, &idnon in early 1)17, in response to t"e

p!lic demand for an a$ricltral sc"ool in 9indanao. It epanded into t"e &idnon National

A$ricltral #i$" Sc"ool and -as transferred to its ne- site in 9ana$o near 9alay!alay, t"e

provincial capital of &idnon.

In t"e early 1)+7Cs, it -as converted into a colle$e -it" camps at 9san, ntil it !ecame -"at

is no- no-n as t"e /9%, !t still primarily an a$ricltral niversity. rom its !e$innin$, t"e

sc"ool -as t"e ans-er to t"e cryin$ need for trainin$ people in order to develop t"e a$ricltral

potential of t"e island of 9indanao. T"ose -"o planned and esta!lis"ed t"e sc"ool "ad a vision

as to t"e ftre development of t"at part of t"e "ilippines. 8n (anary 1+, 1)'* t"e resident of

t"e Rep!lic of t"e "ilippines, t"e late /arlos . @arcia, >pon t"e recommendation of t"e

Secretary of A$ricltre and Natral Resorces, and prsant to t"e provisions of Section '4, of

/ommon-ealt" Act No. 1B1, as amended>, issed roclamation No. B+, -it"dra-in$ from sale

or settlement and reservin$ for t"e 9indanao A$ricltral /olle$e, a site -"ic" -old !e t"e

ftre camps of -"at is no- t"e /9%. A total land area comprisin$ 4,7*7 "ectares -assrveyed and re$istered and titled in t"e name of t"e petitioner nder 8/T Nos. 1+7, 1+1 and

1+6. 1

In t"e corse of t"e cadastral "earin$ of t"e sc"oolCs petition for re$istration of t"e

aforementioned $rant of a$ricltral land, several tri!es !elon$in$ to cltral commnities,

opposed t"e petition claimin$ o-ners"ip of certain ancestral lands formin$ part of t"e tri!al

reservations. Some of t"e claims -ere $ranted so t"at -"at -as titled to t"e present petitioner

sc"ool -as redced from 4,B71 "ectares to 4,7*7 "ectares.

In t"e early 1)+7Cs, t"e stdent poplation of t"e sc"ool -as less t"an 4,777. &y 1)**, t"e stdent poplation "ad epanded to some 14,777 stdents, so t"at t"e sc"ool commnity "as an

academic poplation 2stdent, faclty and non:academic staff3 of almost 1',777. To cope -it"

t"e increase in its enrollment, it "as epanded and improved its edcational facilities partly from

$overnment appropriation and partly !y self:"elp measres.

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Tre to t"e concept of a land $rant colle$e, t"e sc"ool em!ared on self:"elp measres to carry

ot its edcational o!;ectives, train its stdents, and maintain varios activities -"ic" t"e

$overnment appropriation cold not ade=ately spport or sstain. In 1)*B, t"e /9% approved

Resoltion No. 1+7, adoptin$ a liveli"ood pro$ram called >ilsan$ Sarilin$ Siap ro$ram>

nder -"ic" t"e land resorces of t"e %niversity -ere leased to its faclty and employees. T"is

arran$ement -as covered !y a -ritten contract. %nder t"is pro$ram t"e faclty and staff com!ine

t"emselves to $rops of five mem!ers eac", and t"e /9% provided tec"nical no-:"o-,

practical trainin$ and all inds of assistance, to ena!le eac" $rop to cltivate B to ' "ectares of

land for t"e lo-land rice pro;ect. Eac" $rop pays t"e /9% a service fee and also a land se

participantCs fee. T"e contract pro"i!its participants and t"eir "ired -orers to esta!lis" "oses or

live in t"e pro;ect area and to se t"e cltivated land as a collateral for any ind of loan. It -as

epressly stiplated t"at no landlord:tenant relations"ip eisted !et-een t"e /9% and t"e

faclty andFor employees. T"is particlar pro$ram -as conceived as a mlti:disciplinary applied

researc" etension and prodctivity pro$ram to tili5e availa!le land, train people in modern

a$ricltral tec"nolo$y and at t"e same time $ive t"e faclty and staff opportnities -it"in t"econfines of t"e /9% reservation to earn additional income to a$ment t"eir salaries. T"e

location of t"e /9% at 9san, &idnon, -"ic" is =ite a distance from t"e nearest to-n, -as

t"e proper settin$ for t"e adoption of sc" a pro$ram. Amon$ t"e participants in t"is pro$ram

-ere Alvin 8!ri=e, eli @inanao, (oven /a!allero, Nestor lao, Danilo Vas=e5, Aronio

elayo and ot"er complainants. 8!ri=e -as a "ysics Instrctor at t"e /9% -"ile t"e ot"ers

-ere employees in t"e lo-land rice pro;ect. T"e ot"er complainants -"o -ere not mem!ers of

t"e faclty or non:academic staff /9%, -ere "ired -orers or la!orers of t"e participants in t"is

pro$ram. ?"en petitioner Dr. Leonardo /"a !ecame resident of t"e /9% in (ly 1)*+, "e

discontined t"e a$ri:!siness pro;ect for t"e prodction of rice, corn and s$ar cane no-n as

A$ri:&siness 9ana$ement and Trainin$ ro;ect, de to losses incrred -"ile carryin$ on t"esaid pro;ect. Some /9% personnel, amon$ -"om -ere t"e complainants, -ere laid:off -"en

t"is pro;ect -as discontined. As Assistant Director of t"is a$ri:!siness pro;ect, 8!ri=e -as

fond $ilty of mis"andlin$ t"e /9% fnds and -as separated from service !y virte of

Eective 8rder No. 1, t"e re:or$ani5ation la- of t"e /9%.

Sometime in 1)*+, nder Dr. /"a as resident, t"e /9% lanc"ed a self:"elp pro;ect called

/9%:Income En"ancement ro$ram 2/9%:IE3 to develop ntili5ed land resorces, mo!ili5e

and promote t"e spirit of self:reliance, provide socio:economic and tec"nical trainin$ in actal

field pro;ect implementation and a$ment t"e income of t"e faclty and t"e staff.

%nder t"e terms of a 4:party 9emorandm of A$reement 2 amon$ t"e /9%, t"e /9%:

Inte$rated Development ondation 2/9%:ID3 and $rops or >seldas> of ' /9% employees,

t"e /9% -old provide t"e se of B to ' "ectares of land to a selda for one 213 calendar year.

T"e /9%:ID -old provide researc"ers and specialists to assist in t"e preparation of pro;ect

proposals and to monitor and analy5e pro;ect implementation. T"e selda in trn -old pay to t"e

/9% 177 as service fee and 1,777 per "ectare as participantCs land rental fee. In addition, B77

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ilo$rams of t"e prodce per year -old !e trned over or donated to t"e /9%:ID. T"e

participants a$reed not to allo- t"eir "ired la!orers or mem!er of t"eir family to esta!lis" any

"ose or live -it"in vicinity of t"e pro;ect area and not to se t"e allocated lot as collateral for a

loan. It -as epressly provided t"at no tenant:landlord relations"ip -old eist as a reslt of t"e

A$reement.

Initially, participation in t"e /9%:IE -as etended only to -orers and staff mem!ers -"o

-ere still employed -it" t"e /9% and -as not made availa!le to former -orers or employees.

In t"e middle of 1)*, to cs"ion t"e impact of t"e discontinance of t"e rice, corn and s$ar

cane pro;ect on t"e lives of its former -orers, t"e /9% allo-ed t"em to participate in t"e

/9%:IE as special participants.

%nder t"e terms of a contract called Addendm To Eistin$ 9emorandm of A$reement

/oncernin$ articipation To t"e /9%:Income En"ancement ro$ram, 3 a former employee

-old !e $roped -it" an eistin$ selda of "is c"oice and provided one 213 "ectare for a lo-land

rice pro;ect for one 213 calendar year. #e -old pay t"e land rental participantCs fee of 1,777.77

per "ectare !t on a c"ar$e:to:crop !asis. #e -old also !e s!;ect to t"e same pro"i!itions as

t"ose imposed on t"e /9% employees. It -as also epressly provided t"at no tenant:landlord

relations"ip -old eist as a reslt of t"e A$reement.

T"e one:year contracts epired on (ne 47, 1)**. Some contracts -ere rene-ed. T"ose -"ose

contracts -ere not rene-ed -ere served -it" notices to vacate.

T"e non:rene-al of t"e contracts, t"e discontinance of t"e rice, corn and s$ar cane pro;ect, t"e

loss of ;o!s de to termination or separation from t"e service and t"e alle$ed "arassment !ysc"ool at"orities, all contri!ted to, and precipitated t"e filin$ of t"e complaint.

8n t"e !asis of t"e a!ove facts, t"e DARA& fond t"at t"e private respondents -ere not tenants

and cannot t"erefore !e !eneficiaries nder t"e /AR. At t"e same time, t"e DARA& ordered

t"e se$re$ation of B77 "ectares of sita!le, compact and conti$os portions of t"e /9% land

and t"eir inclsion in t"e /AR for distri!tion to =alified !eneficiaries.

T"e petitioner /9%, in seein$ a revie- of t"e decisions of t"e respondents DARA& and t"e

/ort of Appeals, raised t"e follo-in$ issesG

1.3 ?"et"er or not t"e DARA& "as ;risdiction to "ear and decide /ase No. 77' for Declaration

of Stats of Tenants and covera$e of land nder t"e /AR.

6.3 ?"et"er or not respondent /ort of Appeals committed serios errors and $rave a!se of

discretion amontin$ to lac of ;risdiction in dismissin$ t"e etition for Revie-

on -ertiorari and affirmin$ t"e decision of DARA&.

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In t"eir complaint, doceted as DAR /ase No. ', filed -it" t"e DARA&, complainants 8!ri=e,

et al. claimed t"at t"ey are tenants of t"e /9% andFor landless peasants claimin$Foccpyin$ a

part or portion of t"e /9% sitated at Sinalayan, Valencia, &idnon and 9san, &idnon,

consistin$ of a!ot 1,677 "ectares. ?e a$ree -it" t"e DARA&Cs findin$ t"at 8!ri=e, et. al. are

not tenants. %nder t"e terms of t"e -ritten a$reement si$ned !y 8!ri=e, et. al., prsant to t"e

liveli"ood pro$ram called >ilsan$ Sarilin$ Siap ro$ram>, it -as epressly stiplated t"at no

landlord:tenant relations"ip eisted !et-een t"e /9% and t"e faclty and staff 2participants in

t"e pro;ect3. T"e /9% did not receive any s"are from t"e "arvestFfrits of t"e land tilled !y t"e

participants. ?"at t"e /9% collected -as a nominal service fee and land se participantCs fee in

consideration of all t"e inds of assistance $iven to t"e participants !y t"e /9%. A$ain, t"e

a$reement si$ned !y t"e participants nder t"e /9%:IE clearly stiplated t"at no landlord:

tenant relations"ip eisted, and t"at t"e participants are not s"are croppers nor lessees, and t"e

/9% did not s"are in t"e prodce of t"e participantsC la!or.

In t"e same para$rap" of t"eir complaint, complainants claim t"at t"ey are landless peasants.T"is alle$ation re=ires proof and s"old not !e accepted as factally tre. 8!ri=e is not a

landless peasant. T"e facts s"o-ed "e -as "ysics Instrctor at /9% "oldin$ a very responsi!le

position -as separated from t"e service on accont of certain irre$larities "e committed -"ile

Assistant Director of t"e A$ri:&siness ro;ect of cltivatin$ lo-land rice. 8t"ers may, at t"e

moment, o-n no land in &idnon !t t"ey may not necessarily !e so destitte in t"eir places of

ori$in. No proof -"atsoever appears in t"e record to s"o- t"at t"ey are landless peasants.

T"e evidence on record esta!lis" -it"ot do!t t"at t"e complainants -ere ori$inally at"ori5ed

or $iven permission to occpy certain areas of t"e /9% property for a definite prpose to

carry ot certain niversity pro;ects as part of t"e /9%Cs pro$ram of activities prsant to itsavo-ed prpose of $ivin$ trainin$ and instrction in a$ricltral and ot"er related tec"nolo$ies,

sin$ t"e land and ot"er resorces of t"e instittion as a la!oratory for t"ese pro;ects. T"eir entry

into t"e land of t"e /9% -as -it" t"e permission and -ritten consent of t"e o-ner, t"e /9%,

for a limited period and for a specific prpose. After t"e epiration of t"eir privile$e to occpy

and cltivate t"e land of t"e /9%, t"eir contined stay -as nat"ori5ed and t"eir settlement on

t"e /9%Cs land -as -it"ot le$al at"ority. A person enterin$ pon lands of anot"er, not

claimin$ in $ood fait" t"e ri$"t to do so !y virte of any title of "is o-n, or !y virte of some

a$reement -it" t"e o-ner or -it" one -"om "e !elieves "olds title to t"e land, is a

s=atter. % S=atters cannot enter t"e land of anot"er srreptitiosly or !y stealt", and nder t"e

m!rella of t"e /AR, claim ri$"ts to said property as landless peasants. %nder Section 4 of

R.A. ++', persons $ilty of committin$ pro"i!ited acts of forci!le entry or ille$al detainer do

not =alify as !eneficiaries and may not avail t"emselves of t"e ri$"ts and !enefits of a$rarian

reform. Any sc" person -"o no-in$ly and -ilflly violates t"e a!ove provision of t"e Act

s"all !e pnis"ed -it" imprisonment or fine at t"e discretion of t"e /ort.

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2d3 All private lands devoted to or sita!le for a$ricltre re$ardless of t"e

a$ricltral prodcts raised or t"at can !e raised t"ereon.

Sec. 17 /1/MPT23S A0 /1-L#S23S . Lands actally, directly and

eclsively sed and fond to !e necessary for pars, -ildlife, forest reserves,

reforestration, fis" sanctaries and !reedin$ $ronds, -aters"eds and man$roves,

national defense, school sites and campuses including e4perimental farm stations

operated ! pulic or private schools for educational purposes, seeds and

seedlings research and pilot production centers, c"rc" sites and convents

apprtenant t"ereto, mos=e sites and Islamic centers apprtenant t"ereto,

commnal !rial $ronds and cemeteries, penal colonies and penal farms actally

-ored !y t"e inmates, $overnment and private researc" and =arantine centers

and all lands -it" ei$"teen percent 21*H3 slope and over, ecept t"ose already

developed shall e e4empt from the coverage of this Act. 2Emp"asis spplied3.

T"e constrction $iven !y t"e DARA& to Section 17 restricts t"e land area of t"e /9% to its

present needs or to a land area presently, actively eploited and tili5ed !y t"e niversity in

carryin$ ot its present edcational pro$ram -it" its present stdent poplation and academic

facility overlooin$ t"e very si$nificant factor of $ro-t" of t"e niversity in t"e years to

come. &y t"e natre of t"e /9%, -"ic" is a sc"ool esta!lis"ed to promote a$ricltre and

indstry, t"e need for a vast tract of a$ricltral land and for ftre pro$rams of epansion is

o!vios. At t"e otset, t"e /9% -as conceived in t"e same manner as land $rant colle$es in

America, a type of edcational instittion -"ic" !la5ed t"e trail for t"e development of vast

tracts of neplored and ndeveloped a$ricltral lands in t"e 9id:?est. ?"at -e no- no- as

9ic"i$an State %niversity, enn State %niversity and Illinois State %niversity, started as smallland $rant colle$es, -it" mea$er fndin$ to spport t"eir ever increasin$ edcational pro$rams.

T"ey -ere $iven etensive tracts of a$ricltral and forest lands to !e developed to spport t"eir

nmeros epandin$ activities in t"e fields of a$ricltral tec"nolo$y and scientific researc".

nds for t"e spport of t"e edcational pro$rams of land $rant colle$es came from $overnment

appropriation, tition and ot"er stdent fees, private endo-ments and $ifts, and earnin$s from

miscellaneos sorces. ( It -as in t"is same spirit t"at resident @arcia issed roclamation No.

B+, -it"dra-in$ from sale or settlement and reservin$ for t"e 9indanao A$ricltral /olle$e

2forernner of t"e /9%3 a land reservation of 4,7*7 "ectares as its ftre camps. It -as set p

in &idnon, in t"e "interlands of 9indanao, in order t"at it can "ave eno$" resorces and -ide

open spaces to $ro- as an a$ricltral edcational instittion, to develop and train ftre farmers

of 9indanao and "elp attract settlers to t"at part of t"e contry.

In line -it" its avo-ed prpose as an a$ricltral and tec"nical sc"ool, t"e %niversity adopted a

land tili5ation pro$ram to develop and eploit its 47*7:"ectare land reservation as follo-sG )

No. of #ectares ercenta$e

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a. Livestoc and astre 1,71+.B7 44

!. %pland /rops +1+ 67

c. /amps and Residential sites B+6 1'

d. Irri$ated rice B77.B7 14

e. ?aters"ed and forest reservation 47* 17

f. rit and Trees /rops 1'B '

$. A$ricltral

Eperimental stations 164.67 B

4,7*7.77 177H

T"e first land se plan of t"e /AR -as prepared in 1)' and since t"en it "as nder$one

several revisions in line -it" c"an$in$ economic conditions, national economic policies and

financial limitations and availa!ility of resorces. T"e /9%, t"ro$" Resoltion No. 1+7 S.

1)*B, prsant to its development plan, adopted a mlti:disciplinary applied researc" etension

and prodctivity pro$ram called t"e >ilsan$ Sarilin$ Siap ro;ect> 2/9%:SS3. T"e

o!;ectives 9 of t"is pro$ram -ereG

1. rovide researc"es -"o s"all assist in 2a3 preparation of proposal< 2!3 monitor

pro;ect implementation< and 2c3 collect and analy5e all data and informationrelevant to t"e processes and reslts of pro;ect implementation<

6. rovide t"e se of land -it"in t"e %niversity reservation for t"e prpose of

esta!lis"in$ a lo-land rice pro;ect for t"e party of t"e Second art for a period of

one calendar year s!;ect to discretionary rene-al !y t"e arty of t"e irst art<

4. rovide practical trainin$ to t"e arty of t"e Second art on t"e mana$ement

and operation of t"eir lo-land pro;ect pon re=est of arty of t"e Second art<

and

B. rovide tec"nical assistance in t"e form of relevant liveli"ood pro;ect

specialists -"o s"all etend epertise on scientific met"ods of crop prodction

pon re=est !y arty of t"e Second art.

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In retrn for t"e tec"nical assistance etended !y t"e /9%, t"e participants in a pro;ect pay a

nominal amont as service fee. T"e self:reliance pro$ram -as ad;nct to t"e /9%Cs lo-land rice

pro;ect.

T"e portion of t"e /9% land leased to t"e "ilippine acin$ /orporation 2no- Del 9onte

"ils., Inc.3 -as leased lon$ !efore t"e /AR -as passed. T"e a$reement -it" t"e "ilippine

acin$ /orporation -as not a lease !t a 9ana$ement and Development A$reement, a ;oint

ndertain$ -"ere se !y t"e "ilippine acin$ /orporation of t"e land -as part of t"e /9%

researc" pro$ram, -it" t"e direct participation of faclty and stdents. Said contracts -it" t"e

"ilippine acin$ /orporation and ot"ers of a similar natre 2lie 99:A$raple3 -ere made

prior to t"e enactment of R.A. ++' and -ere directly connected to t"e prpose and o!;ectives of

t"e /9% as an edcational instittion. As soon as t"e o!;ectives of t"e a$reement for t"e ;oint

se of t"e /9% land -ere ac"ieved as of (ne 1)**, t"e /9% adopted a !le print for t"e

eclsive se and tili5ation of said areas to carry ot its o-n researc" and a$ricltral

eperiments.

As to t"e determination of -"en and -"at lands are found to e necessar! for se !y t"e /9%,

t"e sc"ool is in t"e !est position to resolve and ans-er t"e =estion and pass pon t"e pro!lem of

its needs in relation to its avo-ed o!;ectives for -"ic" t"e land -as $iven to it !y t"e State.

Neit"er t"e DARA& nor t"e /ort of Appeals "as t"e ri$"t to s!stitte its ;d$ment or

discretion on t"is matter, nless t"e evidentiary facts are so manifest as to s"o- t"at t"e /9%

"as no real for t"e land.

It is or opinion t"at t"e B77 "ectares ordered se$re$ated !y t"e DARA& and affirmed !y t"e

/ort of Appeals in its Decision dated A$st 67, 1))7, is not covered !y t"e /AR !ecaseG

213 It is not aliena!le and disposa!le land of t"e p!lic domain<

263 T"e /9% land reservation is not in ecess of specific limits as determined !y

/on$ress<

243 It is private land re$istered and titled in t"e name of its la-fl o-ner, t"e

/9%<

2B3 It is eempt from covera$e nder Section 17 of R.A. ++' !ecase t"e landsare actally, directly and eclsively sed and found to e necessar! for sc"ool

site and camps, incldin$ eperimental farm stations for edcational prposes,

and for esta!lis"in$ seed and seedlin$ researc" and pilot prodction centers.

2Emp"asis spplied3.

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%nder Section B and Section 17 of R.A. ++', it is crystal clear t"at t"e ;risdiction of t"e

DARA& is limited only to matters involvin$ t"e implementation of t"e /AR. 9ore specifically,

it is restricted to a$rarian cases and controversies involvin$ lands fallin$ -it"in t"e covera$e of

t"e aforementioned pro$ram. It does not inclde t"ose -"ic" are actally, directly and

eclsively sed and fond to !e necessary for, amon$ sc" prposes, sc"ool sites and campses

for settin$ p eperimental farm stations, researc" and pilot prodction centers, etc.

/onse=ently, t"e DARA& "as no po-er to try, "ear and ad;dicate t"e case pendin$ !efore it

involvin$ a portion of t"e /9%Cs titled sc"ool site, as t"e portion of t"e /9% land reservation

ordered se$re$ated is actally, directly and eclsively sed and fond !y t"e sc"ool to !e

necessary for its prposes. T"e /9% "as constantly raised t"e isse of t"e DARA&Cs lac of

;risdiction and "as =estioned t"e respondentCs at"ority to "ear, try and ad;dicate t"e case at

!ar. Despite t"e la- and t"e evidence on record tendin$ to esta!lis" t"at t"e fact t"at t"e DARA&

"ad no ;risdiction, it made t"e ad;dication no- s!;ect of revie-.

?"et"er t"e DARA& "as t"e at"ority to order t"e se$re$ation of a portion of a private property

titled in t"e name of its la-fl o-ner, even if t"e claimant is not entitled as a !eneficiary, is an

isse -e feel -e mst resolve. T"e =asi:;dicial po-ers of DARA& are provided in Eective

8rder No. 16):A, =oted "erender in so far as pertinent to t"e isse at !arG

Sec. 14. A@RARIAN RE8R9 AD(%DI/ATI8N &8ARD T"ere is

"ere!y created an A$rarian Reform Ad;dication &oard nder t"e office of t"e

Secretary. . . . T"e &oard s"all assme t"e po-ers and fnctions -it" respect to

ad;dication of a$rarian reform cases nder Eective 8rder 66) and t"is

Eective 8rder . . .

Sec. 1. %ASI (%DI/IAL 8?ERS 8 T#E DAR. T"e DAR is "ere!y

vested -it" =asi:;dicial po-ers to determine and ad;dicate a$rarian reform

matters and s"all "ave eclsive ori$inal ;risdiction over all matters incldin$

implementation of A$rarian Reform.

Section '7 of R.A. ++'* confers on t"e DAR =asi:;dicial po-ers as follo-sG

T"e DAR is "ere!y vested -it" primary ;risdiction to determine and ad;dicate

a$rarian reform matters and s"all "ave ori$inal ;risdiction over all mattersinvolvin$ t"e implementation of a$rarian reform. . . .

Section 1 of Eective 8rder No. 16):A is merely a repetition of Section '7, R.A. ++'.

T"ere is no do!t t"at t"e DARA& "as ;risdiction to try and decide any a$rarian dispte

in t"e implementation of t"e /AR. An a$rarian dispte is defined !y t"e same la- as

any controversy relatin$ to tenrial ri$"ts -"et"er lease"old, tenancy ste-ards"ip or

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ot"er-ise over lands devoted to

a$ricltre. 10

In t"e case at !ar, t"e DARA& fond t"at t"e complainants are not s"are tenants or lease "olders

of t"e /9%, yet it ordered t"e >se$re$ation of a sita!le compact and conti$os area of or

#ndred "ectares, more or less>, from t"e /9% land reservation, and directed t"e DAR

Re$ional Director to implement its order of se$re$ation. #avin$ fond t"at t"e complainants in

t"is a$rarian dispte for Declaration of Tenancy Stats are not entitled to claim as !eneficiaries

of t"e /AR !ecase t"ey are not s"are tenants or lease"olders, its order for t"e se$re$ation of

B77 "ectares of t"e /9% land -as -it"ot le$al at"ority. - do not !elieve t"at t"e =asi:

;dicial fnction of t"e DARA& carries -it" it $reater at"ority t"an ordinary corts to mae an

a-ard !eyond -"at -as demanded !y t"e complainantsFpetitioners, even in an a$rarian dispte.

?"ere t"e =asi:;dicial !ody finds t"at t"e complainantsFpetitioners are not entitled to t"e ri$"ts

t"ey are demandin$, it is an erroneos interpretation of at"ority for t"at =asi:;dicial !ody to

order private property to !e a-arded to ftre !eneficiaries. T"e order se$re$ation B77 "ectaresof t"e /9% land -as issed on a findin$ t"at t"e complainants are not entitled as !eneficiaries,

and on an erroneos assmption t"at t"e /9% land -"ic" is eclded or eempted nder t"e la-

is s!;ect to t"e covera$e of t"e /AR. @oin$ !eyond -"at -as ased !y t"e complainants -"o

-ere not entitled to t"e relief prayed t"e complainants -"o -ere not entitled to t"e relief prayed

for, constittes a $rave a!se of discretion !ecase it implies sc" capricios and -"imsical

eercise of ;d$ment as is e=ivalent to lac of ;risdiction.

T"e edcation of t"e yot" and a$rarian reform are admittedly amon$ t"e "i$"est priorities in t"e

$overnment socio:economic pro$rams. In t"is case, neit"er need $ive -ay to t"e ot"er. /ertainly,

t"ere mst still !e vast tracts of a$ricltral land in 9indanao otside t"e /9% land reservation-"ic" can !e made availa!le to landless peasants, assmin$ t"e claimants "ere, or some of t"em,

can =alify as /AR !eneficiaries. To or mind, t"e tain$ of t"e /9% land -"ic" "ad !een

se$re$ated for edcational prposes for distri!tion to yet ncertain !eneficiaries is a $ross

misinterpretation of t"e at"ority and ;risdiction $ranted !y la- to t"e DARA&.

T"e decision in t"is case is of far:reac"in$ si$nificance as far as it concerns state colle$es and

niversities -"ose resorces and researc" facilities may !e $radally eroded !y misconstrin$

t"e eemptions from t"e /AR. T"ese state colle$es and niversities are t"e main ve"icles for

or scientific and tec"nolo$ical advancement in t"e field of a$ricltre, so vital to t"e eistence,

$ro-t" and development of t"is contry.

It is t"e opinion of t"is /ort, in t"e li$"t of t"e fore$oin$ analysis and for t"e reasons indicated,

t"at t"e evidence is sfficient to sstain a findin$ of $rave a!se of discretion !y respondents

/ort of Appeals and DAR Ad;dication &oard. ?e "ere!y declare t"e decision of t"e DARA&

dated Septem!er B, 1)*) and t"e decision of t"e /ort of Appeals dated A$st 67, 1))7,

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affirmin$ t"e decision of t"e =asi:;dicial !ody, as nll and void and "ere!y order t"at t"ey !e

set aside, -it" costs a$ainst t"e private respondents.

S8 8RDERED

&. LBRICA VS LBP , GR No. 1(0220, No>. 20, 200'

DECISION

YNARESSANTIAGO, J .G

T"is etition for Revie- on /ertiorari nder Rle B' of t"e Rles of /ort assails t"e

8cto!er 6, 677' Amended DecisionK1 of t"e /ort of Appeals in /A:@.R. S No. '47, -"ic"

vacated its 9ay 6+, 677B Decision affirmin$ 2a3 t"e 8rder of t"e Re$ional Trial /ort of San

(ose, 8ccidental 9indoro, &ranc" B+, actin$ as Special A$rarian /ort, in A$rarian /ase Nos.

R:144) and R:14B7, dated 9arc" 41, 6774 directin$ respondent Land &an of t"e "ilippines

2L&3 to deposit t"e provisional compensation as determined !y t"e rovincial A$rarian Reform

Ad;dicator 2ARAD3< 2!3 t"e 9ay 6+, 6774 Resoltion denyin$ L&s motion for

reconsideration< and 2c3 t"e 9ay 6, 6774 8rder re=irin$ Teresita V. Ten$co, L&s Land

/ompensation Department 9ana$er, to comply -it" t"e 9arc" 41, 6774 8rder.

T"e facts of t"e

case are as follo-sG

etitioner (osefina S. L!rica is t"e assi$neeK6 of ederico /. Sntay over certain parcels

of a$ricltral land located at Sta. Lcia, Sa!layan, 8ccidental 9indoro, -it" an area of

4,+*6.76*' "ectares covered !y Transfer /ertificate of Title 2T/T3 No. T:41 2T:146+3 K4 of t"e

Re$istry of Deeds of 8ccidental 9indoro. In 1)6, a portion of t"e said property -it" an area of

411.+*6 "ectares, -as placed nder t"e land reform pro$ram prsant to residential Decree

No. 6 21)63KB and Eective 8rder No. 66* 21)*3.K' T"e land -as t"ereafter s!divided and

distri!ted to farmer !eneficiaries. T"e Department of A$rarian Reform 2DAR3 and t"e L&

fied t"e vale of t"e land at ',7'+,*44.'B -"ic" amont -as deposited in cas" and !onds in

favor of L!rica.

8n t"e ot"er "and, petitioners Nenita Sntay:TaUedo and Emilio A.9. Sntay III in"erited

from ederico Sntay a parcel of a$ricltral land located at &alansay, 9am!rao, 8ccidental

9indoro covered !y T/T No. T:16*K+ of t"e Re$ister of Deeds of 8ccidental 9indoro,

consistin$ of t-o lots, namely, Lot 1 -it" an area of B'.7+7 "ectares and Lot 6 containin$ an

http://sc.judiciary.gov.ph/jurisprudence/2006/november2006/170220.htm#_ftn1












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area of 1+'.1'1 "ectares or a total of 617.6441 "ectares. Lot 6 -as placed nder t"e covera$e

of .D. No. 6 !t only 16*.1+1 "ectares -as considered !y L& and valed t"e same at

1,'16,''.7'.

etitioners re;ected t"e valation of t"eir properties, "ence t"e 8ffice of t"e rovincial

A$rarian Reform Ad;dicator 2ARAD3 condcted smmary administrative proceedin$s for

determination of ;st compensation. 8n (anary 6), 6774, t"e ARAD fied t"e preliminary ;st

compensation at '1,*77,6*+.B4 for t"e 411.+*6 "ectares 2T/T No. T:413 and 61,+7*,61'.6*

for t"e 16*.1+1 "ectares 2T/T No. T:16*3.K

Not satisfied -it" t"e valation, L& filed on e!rary 1, 6774, t-o separate

petitionsK* for ;dicial determination of ;st compensation !efore t"e Re$ional Trial /ort of San

(ose, 8ccidental 9indoro, actin$ as a Special A$rarian /ort, doceted as A$rarian /ase No. R:144) for T/T No. T:41 and A$rarian /ase No. R:14B7 for T/T No. T:16*, and raffled to &ranc"

B+ t"ereof.

etitioners filed separate 9otions to Deposit t"e reliminary Valation %nder Section

1+2e3 of Rep!lic Act 2R.A.3 No. ++' 21)**3K) and Ad /atelam Ans-er prayin$ amon$ ot"ers

t"at L& deposit t"e preliminary compensation determined !y t"e ARAD.

8n 9arc" 41, 6774, t"e trial cort issed an 8rder K17 $rantin$ petitioners motion, t"e

dispositive portion of -"ic" readsG

?#ERE8RE, 9s. Teresita V. Ten$co, of t"e Land /ompensation

Department I 2L/D I3, Land &an of t"e "ilippines, is "ere!y ordered prsantto Section 1+ 2e3 of RA ++' in relation to Section 6, Administrative 8rder No. *,

Series of 1))1, to deposit t"e provisional compensation as determined !y t"e

ARAD in cas" and !onds, as follo-sG

1. In A$rarian /ase No. R:144), t"e amont of '1,*77,6*+.B4, mins t"e

amont received !y t"e Lando-ner<

6. In A$rarian /ase No. R:14B7, t"e amont of 61,+7*,61'.6*, less t"eamont of 1,'16,''.1+, t"e amont already deposited.

Sc" deposit mst !e made -it" t"e Land &an of t"e "ilippines, 9anila -it"in five 2'3 days from receipt of a copy of t"is order

and to notify t"is cort of "er compliance -it"in sc" period.









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Let t"is order !e served !y t"e S"eriff of t"is /ort at t"e epense of t"e

movants.

S8 8RDERED.K11

L&s motion for reconsideration -as denied in a ResoltionK16 dated 9ay 6+, 6774. T"e

follo-in$ day, 9ay 6, 6774, t"e trial cort issed an 8rder K14 directin$ 9s. Teresita V. Ten$co,

L&s Land /ompensation Department 9ana$er, to deposit t"e amonts.

T"s, on (ne 1, 6774, L& filed -it" t"e /ort of Appeals a etition for /ertiorari and

ro"i!ition nder Rle +' of t"e Rles of /ort -it" application for t"e issance of a Temporary

Restrainin$ 8rder and ?rit of reliminary In;nction doceted as /A:@.R. S No. '47. K1B

8n (ne 6, 6774, t"e appellate cort issed a +7:day temporary restrainin$ order

K1'

andon 8cto!er +, 6774, a -rit of preliminary in;nction.K1+

8n 9ay 6+, 677B, t"e /ort of Appeals rendered a DecisionK1 in favor of t"e petitioners,

t"e dispositive portion of -"ic" readsG

?#ERE8RE, premises considered, t"ere !ein$ no $rave a!se of discretion, t"e instant etition for /ertiorari and ro"i!ition is DENIED.

Accordin$ly, t"e 8rder dated 9arc" 41, 6774, Resoltion dated 9ay 6+, 6774,

and 8rder dated 9ay 6, 6774 are "ere!y AIR9ED. T"e preliminary

in;nction ?e previosly issed is "ere!y LITED and DISS8LVED.

S8 8RDERED.K1*

T"e /ort of Appeals "eld t"at t"e trial cort correctly ordered L& to deposit t"e amonts

provisionally determined !y t"e ARAD as t"ere is no la- -"ic" pro"i!its L& to mae a

deposit pendin$ t"e fiin$ of t"e final amont of ;st compensation. It also noted t"at t"ere is no

reason for L& to frt"er delay t"e deposit considerin$ t"at t"e DAR already too possession of

t"e properties and distri!ted t"e same to farmer:!eneficiaries as early as 1)6.

L& moved for reconsideration -"ic" -as $ranted. 8n 8cto!er 6, 677', t"e appellate

cort rendered t"e assailed Amended Decision,K1) t"e dispositive portion of -"ic" readsG

?"erefore, in vie- of t"e prescription of a different formla in t"e case of

@a!atin -"ic" ?e "old as co$ent and compellin$ ;stification necessitatin$ %s toeffect t"e reversal of 8r ;d$ment "erein so$"t to !e reconsidered, t"e instant





















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9otion for Reconsideration is @RANTED, and 8r 9ay 6+, 677B Decision is

"ere!y VA/ATED and A&AND8NED -it" t"e end in vie- of $ivin$ -ay to and

actin$ in "armony and in con$rence -it" t"e tenor of t"e rlin$ in t"e case of @a!atin. Accordin$ly, t"e assailed rlin$s of t"e Special A$rarian /ort is 2sic3

commanded to compte and fi t"e ;st compensation for t"e epropriated

a$ricltral lands strictly in accordance -it" t"e mode of comptation prescri!ed2sic3 8r 9ay 6+, 677B ;d$ment in t"e case of @a!atin.

S8 8RDERED.K67

In t"e Amended Decision, t"e /ort of Appeals "eld t"at t"e immediate deposit of t"e

preliminary vale of t"e epropriated properties is improper !ecase it -as erroneosly

compted. /itin$ Gaatin v. Land %an5 of the Philippines,K61 it "eld t"at t"e formla to compte

t"e ;st compensation s"old !eG Land Vale 6.' Avera$e @ross rodction @overnment

Spport rice. Specifically, it "eld t"at t"e vale of t"e $overnment spport price for t"e

correspondin$ a$ricltral prodce 2rice and corn3 s"old !e compted at t"e time of t"e le$al

tain$ of t"e s!;ect a$ricltral land, t"at is, on 8cto!er 61, 1)6 -"en lando-ners -ere

effectively deprived of o-ners"ip over t"eir properties !y virte of .D. No. 6. Accordin$ to

t"e /ort of Appeals, t"e ARAD incorrectly sed t"e amonts of '77 and 477 -"ic" are t"e

prevailin$ $overnment spport price for palay and corn, respectively, at t"e time of payment,

instead of 4' and 41, t"e prevailin$ $overnment spport price at t"e time of t"e tain$ in

1)6.

#ence, t"is petition raisin$ t"e follo-in$ issesG

A. T#E /8%RT A %8 #AS DE/IDED T#E /ASE IN A ?AY N8T INA//8RD ?IT# T#E LATEST DE/ISI8N 8 T#E S%RE9E /8%RT IN

T#E /ASE 8 LAND &AN 8 T#E #ILIINES VS. #8N. ELI @./.

NATIVIDAD, ET AL., @.R. N8. 161)*, R89. 9AY 1+, 677'< andK66

&. T#E /8%RT A %8 #AS, ?IT# @RAVE @RAVE A&%SE 8

DIS/RETI8N, S8 AR DEARTED R89 T#E A//ETED AND %S%AL

/8%RSE 8 (%DI/IAL R8/EEDIN@S, DE/IDIN@ ISS%ES T#AT #AVE N8T &EEN RAISED, AS T8 /ALL 8R AN EER/ISE 8 T#E 8?ER 8

S%ERVISI8N.K64

etitioners insist t"at t"e determination of ;st compensation s"old !e !ased on t"e vale

of t"e epropriated properties at t"e time of payment. Respondent L&, on t"e ot"er "and,

claims t"at t"e vale of t"e realties s"old !e compted as of 8cto!er 61, 1)6 -"en .D. No. 6

too effect.









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T"e petition is impressed -it" merit.

In t"e case of Land %an5 of the Philippines v. atividad ,K6B t"e /ort rled t"sG

Land &ans contention t"at t"e property -as ac=ired for prposes of a$rarian reform on 8cto!er 61, 1)6, t"e time of t"e effectivity of D 6, er$o ;st compensation s"old !e !ased on t"e vale of t"e property as of t"at time and

not at t"e time of possession in 1))4, is lie-ise erroneos. In 3ffice of the

President, Malaca6ang, Manila v. -ourt of Appeals, -e rled t"at t"e sei5re of t"e land"oldin$ did not tae place on t"e date of effectivity of D 6 !t -old

tae effect on t"e payment of ;st compensation.

T"e atividad case reiterated t"e /orts rlin$ in 3ffice of the President v. -ourt of

AppealsK6' t"at t"e epropriation of t"e land"oldin$ did not tae place on t"e effectivity of .D.

No. 6 on 8cto!er 61, 1)6 !t sei5re -old tae effect on t"e payment of ;st compensation ;dicially determined.

Lie-ise, in t"e recent case of "eirs of 7rancisco $. Tantoco, Sr. v. -ourt of Appeals,K6+ -e "eld t"at epropriation of land"oldin$s covered !y R.A. No. ++' tae place, not on t"e

effectivity of t"e Act on (ne 1', 1)**, !t on t"e payment of ;st compensation.

In t"e instant case, petitioners -ere deprived of t"eir properties in 1)6 !t "ave yet to

receive t"e ;st compensation t"erefor. T"e parcels of land -ere already s!divided and

distri!ted to t"e farmer:!eneficiaries t"ere!y immediately deprivin$ petitioners of t"eir

se. %nder t"e circmstances, it -old !e "i$"ly ine=ita!le on t"e part of t"e petitioners to

compte t"e ;st compensation sin$ t"e vales at t"e time of t"e tain$ in 1)6, and not at t"e

time of t"e payment, considerin$ t"at t"e $overnment and t"e farmer:!eneficiaries "ave already

!enefited from t"e land alt"o$" o-ners"ip t"ereof "ave not yet !een transferred in t"eir

names. etitioners -ere deprived of t"eir properties -it"ot payment of ;st compensation

-"ic", nder t"e la-, is a prere=isite !efore t"e property can !e taen a-ay from its o-ners.K6 T"e transfer of possession and o-ners"ip of t"e land to t"e $overnment are conditioned pon

t"e receipt !y t"e lando-ner of t"e correspondin$ payment or deposit !y t"e DAR of t"ecompensation -it" an accessi!le !an. %ntil t"en, title remains -it" t"e lando-ner.K6*

8r rlin$ in Association of Small Landowners in the Philippines, 2nc. v. Secretar! of

Agrarian $eformK6) is instrctive, t"sG














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It is tre t"at .D. No. 6 epressly ordered t"e emancipation of tenant:

farmer as 8cto!er 61, 1)6 and declared t"at "e s"all M!e deemed t"e o-nerO of a

portion of land consistin$ of a family:si5ed farm ecept t"at Mno title to t"e lando-ned !y "im -as to !e actally issed to "im nless and ntil "e "ad !ecome a

fll:fled$ed mem!er of a dly reco$ni5ed farmers cooperative.O It -as

nderstood, "o-ever, t"at fll payment of t"e ;st compensation also "ad to !emade first, conforma!ly to t"e constittional re=irement.

?"en E.8. No. 66*, cate$orically stated in its Section 1 t"atG

All =alified farmer:!eneficiaries are no- deemed fll

o-ners as of 8cto!er 61, 1)6 of t"e land t"ey ac8uired !y virte

of residential Decree No. 6 2Emp"asis spplied.3

it -as o!viosly referrin$ to lands already validly ac=ired nder t"e said decree,

after proof of fll:fled$ed mem!ers"ip in t"e farmers cooperatives and fll

payment of ;st compensation.

T"e /AR La-, for its part, conditions t"e transfer of possession ando-ners"ip of t"e land to t"e $overnment on receipt !y t"e lando-ner of t"e

correspondin$ payment or t"e deposit !y t"e DAR of t"e compensation in cas" or

L& !onds -it" an accessi!le !an. %ntil t"en, title also remains -it" t"elando-ner. No otri$"t c"an$e of o-ners"ip is contemplated eit"er.

?e also note t"at t"e epropriation proceedin$s in t"e instant case -as initiated nder

.D. No. 6 !t t"e a$rarian reform process is still incomplete considerin$ t"at t"e ;st

compensation to !e paid to petitioners "as yet to !e settled. /onsiderin$ t"e passa$e of R.A. No.++' !efore t"e completion of t"is process, t"e ;st compensation s"old !e determined and t"e

process conclded nder t"e said la-. Indeed, R.A. No. ++' is t"e applica!le la-, -it" .D. No.

6 and E.8. No. 66* "avin$ only sppletory effect.K47

In Land %an5 of the Philippines v. -ourt of Appeals,K41 -e "eld t"atG

RA ++' incldes D 6 lands amon$ t"e properties -"ic" t"e DAR s"allac=ire and distri!te to t"e landless. And to facilitate t"e ac=isition and

distri!tion t"ereof, Secs. 1+, 1 and 1* of t"e Act s"old !e ad"ered to.

Section 1* of R.A. No. ++' mandates t"at t"e L& s"all compensate t"e lando-ner in

sc" amont as may !e a$reed pon !y t"e lando-ner and t"e DAR and t"e L& or as may !e

finally determined !y t"e cort as t"e ;st compensation for t"e land. In determinin$ ;st

compensation, t"e cost of t"e ac=isition of t"e land, t"e crrent vale of lie properties, its

natre, actal se and income, t"e s-orn valation !y t"e o-ner, t"e ta declarations, and t"e





8/10/2019 Cases Sec 1 to 26 RA 6657


assessment made !y $overnment assessors s"all !e considered. T"e social and economic

!enefits contri!ted !y t"e farmers and t"e farm-orers and !y t"e $overnment to t"e property

as -ell as t"e nonpayment of taes or loans secred from any $overnment financin$ instittion

on t"e said land s"all !e considered as additional factors to determine its valation.K46

/orollarily, -e "eld in Land %an5 of the Philippines v. -eladaK44 t"at t"e a!ove provision

-as converted into a formla !y t"e DAR t"ro$" Administrative 8rder No. 7', S. 1))*, to -itG

Land Vale 2LV3 2/apitali5ed Net Income 7.+3 W 2/ompara!le Sales 7.43 W 29aret

Vale per Ta Declaration 7.13

etitioners -ere deprived of t"eir properties -ay !ac in 1)6, yet to date, t"ey "ave not

yet received ;st compensation. T"s, it -old certainly !e ine=ita!le to determine ;st

compensation !ased on t"e $ideline provided !y .D. No. 66 and E.8. No. 66* considerin$ t"e

failre to determine ;st compensation for a considera!le len$t" of time. T"at ;st compensation

s"old !e determined in accordance -it" R.A. No. ++' and not .D. No. 66 or E.8. No. 66*, is

important considerin$ t"at ;st compensation s"old !e t"e fll and fair e=ivalent of t"e

property taen from its o-ner !y t"e epropriator, t"e e=ivalent !ein$ real, s!stantial, fll and

ample.K4B

$4EREFORE, premises considered, t"e petition is GRANTED. T"e assailed Amended

Decision dated 8cto!er 6, 677' of t"e /ort of Appeals in /A:@.R. S No. '47is REVERSED !"# SET ASIDE. T"e Decision dated 9ay 6+, 677B of t"e /ort of Appeals

affirmin$ 2a3 t"e 9arc" 41, 6774 8rder of t"e Special A$rarian /ort orderin$ t"e respondent

Land &an of t"e "ilippines to deposit t"e ;st compensation provisionally determined !y t"e

ARAD< 2!3 t"e 9ay 6+, 6774 Resoltion denyin$ respondents 9otion for Reconsideration< and

2c3 t"e 9ay 6, 6774 8rder directin$ Teresita V. Ten$co, respondents Land /ompensation

Department 9ana$er to comply -it" t"e 9arc" 41, 6774 8rder, is REINSTATED. T"e

Re$ional Trial /ort of San (ose, 8ccidental 9indoro, &ranc" B+, actin$ as Special A$rarian

/ort is ORDERED to proceed -it" dispatc" in t"e trial of A$rarian /ase Nos. R:144) and R:

14B7, and to compte t"e final valation of t"e s!;ect properties !ased on t"e aforementioned

formla.

SO ORDERED.







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'. Asso-?!t?o" o@ S! L!"#o"s >s S-t!6 o@ Ag!?!" R@o, 1(& SCRA 3%3

<"-ou"t# -!s ?" Co"st? 2, 5u-7! so/!"g 7!/! I -!""ot >"=

CR, J.:

In ancient myt"olo$y, Antaes -as a terri!le $iant -"o !loced and c"allen$ed #ercles for "is

life on "is -ay to 9ycenae after performin$ "is elevent" la!or. T"e t-o -restled mi$"tily and

#ercles fln$ "is adversary to t"e $rond t"inin$ "im dead, !t Antaes rose even stron$er to

resme t"eir str$$le. T"is "appened several times to #erclesC increasin$ ama5ement. inally,

as t"ey contined $rapplin$, it da-ned on #ercles t"at Antaes -as t"e son of @aea and cold

never die as lon$ as any part of "is !ody -as toc"in$ "is 9ot"er Eart". T"s fore-arned,

#ercles t"en "eld Antaes p in t"e air, !eyond t"e reac" of t"e sstainin$ soil, and crs"ed "im

to deat".

9ot"er Eart". T"e sstainin$ soil. T"e $iver of life, -it"ot -"ose invi$oratin$ toc" even t"e

po-erfl Antaes -eaened and died.

T"e cases !efore s are not as fancifl as t"e fore$oin$ tale. &t t"ey also tell of t"e elemental

forces of life and deat", of men and -omen -"o, lie Antaes need t"e sstainin$ stren$t" of t"e

precios eart" to stay alive.

>Land for t"e Landless> is a slo$an t"at nderscores t"e acte im!alance in t"e distri!tion of

t"is precios resorce amon$ or people. &t it is more t"an a slo$an. T"ro$" t"e !roodin$

centries, it "as !ecome a !attle:cry dramati5in$ t"e increasin$ly r$ent demand of t"e

dispossessed amon$ s for a plot of eart" as t"eir place in t"e sn.

Reco$ni5in$ t"is need, t"e /onstittion in 1)4' mandated t"e policy of social ;stice to >insre

t"e -ell:!ein$ and economic secrity of all t"e people,> 1 especially t"e less privile$ed. In 1)4,

t"e ne- /onstittion affirmed t"is $oal addin$ specifically t"at >t"e State s"all re$late t"e

ac=isition, o-ners"ip, se, en;oyment and disposition of private property and e=ita!ly diffse

property o-ners"ip and profits.>

2

Si$nificantly, t"ere -as also t"e specific in;nction to>formlate and implement an a$rarian reform pro$ram aimed at emancipatin$ t"e tenant from t"e

!onda$e of t"e soil.> 3

T"e /onstittion of 1)* -as not to !e otdone. &esides ec"oin$ t"ese sentiments, it also

adopted one -"ole and separate Article III on Social (stice and #man Ri$"ts, containin$

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$randiose !t ndo!tedly sincere provisions for t"e plift of t"e common people. T"ese inclde

a call in t"e follo-in$ -ords for t"e adoption !y t"e State of an a$rarian reform pro$ramG

SE/. B. T"e State s"all, !y la-, ndertae an a$rarian reform pro$ram fonded on

t"e ri$"t of farmers and re$lar farm-orers, -"o are landless, to o-n directly or

collectively t"e lands t"ey till or, in t"e case of ot"er farm-orers, to receive a

;st s"are of t"e frits t"ereof. To t"is end, t"e State s"all encora$e and

ndertae t"e ;st distri!tion of all a$ricltral lands, s!;ect to sc" priorities

and reasona!le retention limits as t"e /on$ress may prescri!e, tain$ into accont

ecolo$ical, developmental, or e=ity considerations and s!;ect to t"e payment of

;st compensation. In determinin$ retention limits, t"e State s"all respect t"e ri$"t

of small lando-ners. T"e State s"all frt"er provide incentives for volntary land:

s"arin$.

Earlier, in fact, R.A. No. 4*BB, ot"er-ise no-n as t"e A$ricltral Land Reform /ode, "ad

already !een enacted !y t"e /on$ress of t"e "ilippines on A$st *, 1)+4, in line -it" t"e

a!ove:stated principles. T"is -as s!stantially sperseded almost a decade later !y .D. No. 6,

-"ic" -as proml$ated on 8cto!er 61, 1)6, alon$ -it" martial la-, to provide for t"e

complsory ac=isition of private lands for distri!tion amon$ tenant:farmers and to specify

maimm retention limits for lando-ners.

T"e people po-er revoltion of 1)*+ did not c"an$e and indeed even ener$i5ed t"e t"rst for

a$rarian reform. T"s, on (ly 1, 1)*, resident /ora5on /. A=ino issed E.8. No. 66*,

declarin$ fll land o-ners"ip in favor of t"e !eneficiaries of .D. No. 6 and providin$ for t"e

valation of still nvaled lands covered !y t"e decree as -ell as t"e manner of t"eir payment.T"is -as follo-ed on (ly 66, 1)* !y residential roclamation No. 141, instittin$ a

compre"ensive a$rarian reform pro$ram 2/AR3, and E.8. No. 66), providin$ t"e mec"anics for

its implementation.

S!se=ently, -it" its formal or$ani5ation, t"e revived /on$ress of t"e "ilippines too over

le$islative po-er from t"e resident and started its o-n deli!erations, incldin$ etensive p!lic

"earin$s, on t"e improvement of t"e interests of farmers. T"e reslt, after almost a year of

spirited de!ate, -as t"e enactment of R.A. No. ++', ot"er-ise no-n as t"e /ompre"ensive

A$rarian Reform La- of 1)**, -"ic" resident A=ino si$ned on (ne 17, 1)**. T"is la-, -"ile

considera!ly c"an$in$ t"e earlier mentioned enactments, nevert"eless $ives t"em sppletoryeffect insofar as t"ey are not inconsistent -it" its provisions. %

T"e a!ove:captioned cases "ave !een consolidated !ecase t"ey involve common le$al

=estions, incldin$ serios c"allen$es to t"e constittionality of t"e several measres mentioned

a!ove. T"ey -ill !e t"e s!;ect of one common discssion and resoltion, T"e different

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antecedents of eac" case -ill re=ire separate treatment, "o-ever, and -ill first !e eplained

"erender.

@.R. No. )

S=arely raised in t"is petition is t"e constittionality of .D. No. 6, E.8. Nos. 66* and 66), andR.A. No. ++'.

T"e s!;ects of t"is petition are a ):"ectare riceland -ored !y for tenants and o-ned !y

petitioner Nicolas 9anaay and "is -ife and a ':"ectare riceland -ored !y for tenants and

o-ned !y petitioner A$stin #ermano, (r. T"e tenants -ere declared fll o-ners of t"ese lands

!y E.8. No. 66* as =alified farmers nder .D. No. 6.

T"e petitioners are =estionin$ .D. No. 6 and E.8. Nos. 66* and 66) on $ronds inter alia of

separation of po-ers, de process, e=al protection and t"e constittional limitation t"at no

private property s"all !e taen for p!lic se -it"ot ;st compensation.

T"ey contend t"at resident A=ino srped le$islative po-er -"en s"e proml$ated E.8. No.

66*. T"e said measre is invalid also for violation of Article III, Section B, of t"e /onstittion,

for failre to provide for retention limits for small lando-ners. 9oreover, it does not conform to

Article VI, Section 6'2B3 and t"e ot"er re=isites of a valid appropriation.

In connection -it" t"e determination of ;st compensation, t"e petitioners ar$e t"at t"e same

may !e made only !y a cort of ;stice and not !y t"e resident of t"e "ilippines. T"ey invoe

t"e recent cases of /P9A v. 0ula! 5and Manoto5 v. ational 7ood Authorit!. ' 9oreover, t"e ;st

compensation contemplated !y t"e &ill of Ri$"ts is paya!le in money or in cas" and not in t"e

form of !onds or ot"er t"in$s of vale.

In considerin$ t"e rentals as advance payment on t"e land, t"e eective order also deprives t"e

petitioners of t"eir property ri$"ts as protected !y de process. T"e e=al protection clase is

also violated !ecase t"e order places t"e !rden of solvin$ t"e a$rarian pro!lems on t"e o-ners

only of a$ricltral lands. No similar o!li$ation is imposed on t"e o-ners of ot"er properties.

T"e petitioners also maintain t"at in declarin$ t"e !eneficiaries nder .D. No. 6 to !e t"e

o-ners of t"e lands occpied !y t"em, E.8. No. 66* i$nored ;dicial prero$atives and so

violated de process. ?orse, t"e measre -old not solve t"e a$rarian pro!lem !ecase even t"e

small farmers are deprived of t"eir lands and t"e retention ri$"ts $aranteed !y t"e /onstittion.

In "is /omment, t"e Solicitor @eneral stresses t"at .D. No. 6 "as already !een p"eld in t"e

earlier cases of -havez v. 9oel, 7 Gonzales v. /strella, 8 and Association of $ice and -orn

Producers of the Philippines, 2nc. v. The ational Land $eform -ouncil. 9 T"e determination of

;st compensation !y t"e eective at"orities conforma!ly to t"e formla prescri!ed nder t"e

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8/10/2019 Cases Sec 1 to 26 RA 6657


A$rarian Reform nd.:T"ere is "ere!y created a special fnd, to !e no-n as t"e A$rarian

Reform nd, an initial amont of ITY &ILLI8N ES8S 2'7,777,777,777.773 to cover t"e

estimated cost of t"e /ompre"ensive A$rarian Reform ro$ram from 1)* to 1))6 -"ic" s"all

!e sorced from t"e receipts of t"e sale of t"e assets of t"e Asset rivati5ation Trst and Receipts

of sale of ill:$otten -ealt" received t"ro$" t"e residential /ommission on @ood @overnment

and sc" ot"er sorces as $overnment may deem appropriate. T"e amonts collected and

accrin$ to t"is special fnd s"all !e considered atomatically appropriated for t"e prpose

at"ori5ed in t"is roclamation t"e amont appropriated is in ftro, not in esse. T"e money

needed to cover t"e cost of t"e contemplated epropriation "as yet to !e raised and cannot !e

appropriated at t"is time.

rt"ermore, t"ey contend t"at tain$ mst !e simltaneos -it" payment of ;st compensation

as it is traditionally nderstood, i.e., -it" money and in fll, !t no sc" payment is

contemplated in Section ' of t"e E.8. No. 66). 8n t"e contrary, Section +, t"ereof provides t"at

t"e Land &an of t"e "ilippines >s"all compensate t"e lando-ner in an amont to !eesta!lis"ed !y t"e $overnment, -"ic" s"all !e !ased on t"e o-nerCs declaration of crrent fair

maret vale as provided in Section B "ereof, !t s!;ect to certain controls to !e defined and

proml$ated !y t"e residential A$rarian Reform /oncil.> T"is compensation may not !e paid

flly in money !t in any of several modes t"at may consist of part cas" and part !ond, -it"

interest, matrin$ periodically, or direct payment in cas" or !ond as may !e mtally a$reed

pon !y t"e !eneficiary and t"e lando-ner or as may !e prescri!ed or approved !y t"e AR/.

T"e petitioners also ar$e t"at in t"e issance of t"e t-o measres, no effort -as made to mae a

carefl stdy of t"e s$ar plantersC sitation. T"ere is no tenancy pro!lem in t"e s$ar areas t"at

can ;stify t"e application of t"e /AR to t"em. To t"e etent t"at t"e s$ar planters "ave !eenlmped in t"e same le$islation -it" ot"er farmers, alt"o$" t"ey are a separate $rop -it"

pro!lems eclsively t"eir o-n, t"eir ri$"t to e=al protection "as !een violated.

A motion for intervention -as filed on A$st 6,1)* !y t"e National ederation of S$arcane

lanters 2NAS3 -"ic" claims a mem!ers"ip of at least 67,777 individal s$ar planters all over

t"e contry. 8n Septem!er 17, 1)*, anot"er motion for intervention -as filed, t"is time !y

9anel &arcelona, et al., representin$ cocont and riceland o-ners. &ot" motions -ere $ranted

!y t"e /ort.

NAS alle$es t"at resident A=ino "ad no at"ority to fnd t"e A$rarian Reform ro$ram andt"at, in any event, t"e appropriation is invalid !ecase of ncertainty in t"e amont appropriated.

Section 6 of roc. No. 141 and Sections 67 and 61 of E.8. No. 66) provide for an initial

appropriation of fifty !illion pesos and t"s specifies t"e minimm rat"er t"an t"e maimm

at"ori5ed amont. T"is is not allo-ed. rt"ermore, t"e stated initial amont "as not !een

certified to !y t"e National Treasrer as actally availa!le.

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T-o additional ar$ments are made !y &arcelona, to -it, t"e failre to esta!lis" !y clear and

convincin$ evidence t"e necessity for t"e eercise of t"e po-ers of eminent domain, and t"e

violation of t"e fndamental ri$"t to o-n property.

T"e petitioners also decry t"e penalty for non:re$istration of t"e lands, -"ic" is t"e epropriation

of t"e said land for an amont e=al to t"e $overnment assessorCs valation of t"e land for ta

prposes. 8n t"e ot"er "and, if t"e lando-ner declares "is o-n valation "e is n;stly re=ired

to immediately pay t"e correspondin$ taes on t"e land, in violation of t"e niformity rle.

In "is consolidated /omment, t"e Solicitor @eneral first invoes t"e presmption of

constittionality in favor of roc. No. 141 and E.8. No. 66). #e also ;stifies t"e necessity for

t"e epropriation as eplained in t"e >-"ereas> clases of t"e roclamation and s!mits t"at,

contrary to t"e petitionerCs contention, a pilot pro;ect to determine t"e feasi!ility of /AR and a

$eneral srvey on t"e peopleCs opinion t"ereon are not indispensa!le prere=isites to its

proml$ation.

8n t"e alle$ed violation of t"e e=al protection clase, t"e s$ar planters "ave failed to s"o-

t"at t"ey !elon$ to a different class and s"old !e differently treated. T"e /omment also s$$ests

t"e possi!ility of /on$ress first distri!tin$ p!lic a$ricltral lands and sc"edlin$ t"e

epropriation of private a$ricltral lands later. rom t"is vie-point, t"e petition for pro"i!ition

-old !e prematre.

T"e p!lic respondent also points ot t"at t"e constittional pro"i!ition is a$ainst t"e payment of

p!lic money -it"ot t"e correspondin$ appropriation. T"ere is no rle t"at only money already

in eistence can !e t"e s!;ect of an appropriation la-. inally, t"e earmarin$ of fifty !illion pesos as A$rarian Reform nd, alt"o$" denominated as an initial amont, is actally t"e

maimm sm appropriated. T"e -ord >initial> simply means t"at additional amonts may !e

appropriated later -"en necessary.

8n April 11, 1)**, rdencio Serrano, a cocont planter, filed a petition on "is o-n !e"alf,

assailin$ t"e constittionality of E.8. No. 66). In addition to t"e ar$ments already raised,

Serrano contends t"at t"e measre is nconstittional !ecaseG

213 8nly p!lic lands s"old !e inclded in t"e /AR<

263 E.8. No. 66) em!races more t"an one s!;ect -"ic" is not epressed in t"e

title<

243 T"e po-er of t"e resident to le$islate -as terminated on (ly 6, 1)*< and

2B3 T"e appropriation of a '7 !illion special fnd from t"e National Treasry did

not ori$inate from t"e #ose of Representatives.

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@.R. No. )BB

T"e petitioner alle$es t"at t"e t"en Secretary of Department of A$rarian Reform, in violation of

de process and t"e re=irement for ;st compensation, placed "is land"oldin$ nder t"e

covera$e of 8peration Land Transfer. /ertificates of Land Transfer -ere s!se=ently issed to

t"e private respondents, -"o t"en refsed payment of lease rentals to "im.

8n Septem!er 4, 1)*+, t"e petitioner protested t"e erroneos inclsion of "is small land"oldin$

nder 8peration Land transfer and ased for t"e recall and cancellation of t"e /ertificates of

Land Transfer in t"e name of t"e private respondents. #e claims t"at on Decem!er 6B, 1)*+, "is

petition -as denied -it"ot "earin$. 8n e!rary 1, 1)*, "e filed a motion for

reconsideration, -"ic" "ad not !een acted pon -"en E.8. Nos. 66* and 66) -ere issed. T"ese

orders rendered "is motion moot and academic !ecase t"ey directly effected t"e transfer of "is

land to t"e private respondents.

T"e petitioner no- ar$es t"atG

213 E.8. Nos. 66* and 66) -ere invalidly issed !y t"e resident of t"e

"ilippines.

263 T"e said eective orders are violative of t"e constittional provision t"at no

private property s"all !e taen -it"ot de process or ;st compensation.

243 T"e petitioner is denied t"e ri$"t of maimm retention provided for nder t"e

1)* /onstittion.

T"e petitioner contends t"at t"e issance of E.7. Nos. 66* and 66) s"ortly !efore /on$ress

convened is anomalos and ar!itrary, !esides violatin$ t"e doctrine of separation of po-ers. T"e

le$islative po-er $ranted to t"e resident nder t"e Transitory rovisions refers only to

emer$ency measres t"at may !e proml$ated in t"e proper eercise of t"e police po-er.

T"e petitioner also invoes "is ri$"ts not to !e deprived of "is property -it"ot de process of

la- and to t"e retention of "is small parcels of rice"oldin$ as $aranteed nder Article III,

Section B of t"e /onstittion. #e lie-ise ar$es t"at, !esides denyin$ "im ;st compensation for

"is land, t"e provisions of E.8. No. 66* declarin$ t"atG

Lease rentals paid to t"e lando-ner !y t"e farmer:!eneficiary after 8cto!er 61,

1)6 s"all !e considered as advance payment for t"e land.

is an nconstittional tain$ of a vested property ri$"t. It is also "is contention t"at t"e inclsion

of even small lando-ners in t"e pro$ram alon$ -it" ot"er lando-ners -it" lands consistin$ of

seven "ectares or more is ndemocratic.

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In "is /omment, t"e Solicitor @eneral s!mits t"at t"e petition is prematre !ecase t"e motion

for reconsideration filed -it" t"e 9inister of A$rarian Reform is still nresolved. As for t"e

validity of t"e issance of E.8. Nos. 66* and 66), "e ar$es t"at t"ey -ere enacted prsant to

Section +, Article VIII of t"e Transitory rovisions of t"e 1)* /onstittion -"ic" readsG

T"e incm!ent president s"all contine to eercise le$islative po-ers ntil t"e first /on$ress is

convened.

8n t"e isse of ;st compensation, "is position is t"at -"en .D. No. 6 -as proml$ated on

8cto!er 61. 1)6, t"e tenant:farmer of a$ricltral land -as deemed t"e o-ner of t"e land "e

-as tillin$. T"e lease"old rentals paid after t"at date s"old t"erefore !e considered amorti5ation

payments.

In "is Reply to t"e p!lic respondents, t"e petitioner maintains t"at t"e motion "e filed -as

resolved on Decem!er 1B, 1)*. An appeal to t"e 8ffice of t"e resident -old !e seless -it"

t"e proml$ation of E.8. Nos. 66* and 66), -"ic" in effect sanctioned t"e validity of t"e p!lic

respondentCs acts.

@.R. No. *B6

T"e petitioners in t"is case invoe t"e ri$"t of retention $ranted !y .D. No. 6 to o-ners of rice

and corn lands not eceedin$ seven "ectares as lon$ as t"ey are cltivatin$ or intend to cltivate

t"e same. T"eir respective lands do not eceed t"e stattory limit !t are occpied !y tenants

-"o are actally cltivatin$ sc" lands.

Accordin$ to .D. No. 41+, -"ic" -as proml$ated in implementation of .D. No. 6G

No tenant:farmer in a$ricltral lands primarily devoted to rice and corn s"all !e

e;ected or removed from "is farm"oldin$ ntil sc" time as t"e respective ri$"ts

of t"e tenant: farmers and t"e lando-ner s"all "ave !een determined in

accordance -it" t"e rles and re$lations implementin$ .D. No. 6.

T"e petitioners claim t"ey cannot e;ect t"eir tenants and so are na!le to en;oy t"eir ri$"t of

retention !ecase t"e Department of A$rarian Reform "as so far not issed t"e implementin$

rles re=ired nder t"e a!ove:=oted decree. T"ey t"erefore as t"e /ort for a -rit of

mandams to compel t"e respondent to isse t"e said rles.

In "is /omment, t"e p!lic respondent ar$es t"at .D. No. 6 "as !een amended !y L8I BB

removin$ any ri$"t of retention from persons -"o o-n ot"er a$ricltral lands of more t"an

"ectares in a$$re$ate area or lands sed for residential, commercial, indstrial or ot"er prposes

from -"ic" t"ey derive ade=ate income for t"eir family. And even assmin$ t"at t"e petitioners

do not fall nder its terms, t"e re$lations implementin$ .D. No. 6 "ave already !een issed, to

8/10/2019 Cases Sec 1 to 26 RA 6657


-it, t"e 9emorandm dated (ly 17, 1)' 2Interim @idelines on Retention !y Small

Lando-ners, -it" an accompanyin$ Retention @ide Ta!le3, 9emorandm /irclar No. 11

dated April 61, 1)*, 2Implementation @idelines of L8I No. BB3, 9emorandm /irclar No.

1*:*1 dated Decem!er 6),1)*1 2/larificatory @idelines on /overa$e of .D. No. 6 and

Retention !y Small Lando-ners3, and DAR Administrative 8rder No. 1, series of 1)*'

2rovidin$ for a /t:off Date for Lando-ners to Apply for Retention andFor to rotest t"e

/overa$e of t"eir Land"oldin$s nder 8peration Land Transfer prsant to .D. No. 63. or

failre to file t"e correspondin$ applications for retention nder t"ese measres, t"e petitioners

are no- !arred from invoin$ t"is ri$"t.

T"e p!lic respondent also stresses t"at t"e petitioners "ave prematrely initiated t"is case

not-it"standin$ t"e pendency of t"eir appeal to t"e resident of t"e "ilippines. 9oreover, t"e

issance of t"e implementin$ rles, assmin$ t"is "as not yet !een done, involves t"e eercise of

discretion -"ic" cannot !e controlled t"ro$" t"e -rit of mandamus. T"is is especially tre if

t"is fnction is entrsted, as in t"is case, to a separate department of t"e $overnment.

In t"eir Reply, t"e petitioners insist t"at t"e a!ove:cited measres are not applica!le to t"em

!ecase t"ey do not o-n more t"an seven "ectares of a$ricltral land. 9oreover, assmin$

ar$endo t"at t"e rles -ere intended to cover t"em also, t"e said measres are nevert"eless not

in force !ecase t"ey "ave not !een p!lis"ed as re=ired !y la- and t"e rlin$ of t"is /ort

in Tanada v. Tuvera. 10 As for L8I BB, t"e same is ineffective for t"e additional reason t"at a

mere letter of instrction cold not "ave repealed t"e presidential decree.

I

Alt"o$" "oldin$ neit"er prse nor s-ord and so re$arded as t"e -eaest of t"e t"ree

departments of t"e $overnment, t"e ;diciary is nonet"eless vested -it" t"e po-er to annl t"e

acts of eit"er t"e le$islative or t"e eective or of !ot" -"en not conforma!le to t"e fndamental

la-. T"is is t"e reason for -"at some =arters call t"e doctrine of ;dicial spremacy. Even so,

t"is po-er is not li$"tly assmed or readily eercised. T"e doctrine of separation of po-ers

imposes pon t"e corts a proper restraint, !orn of t"e natre of t"eir fnctions and of t"eir

respect for t"e ot"er departments, in striin$ do-n t"e acts of t"e le$islative and t"e eective as

nconstittional. T"e policy, indeed, is a !lend of cortesy and cation. To do!t is to sstain.

T"e t"eory is t"at !efore t"e act -as done or t"e la- -as enacted, earnest stdies -ere made !y

/on$ress or t"e resident, or !ot", to insre t"at t"e /onstittion -old not !e !reac"ed.

In addition, t"e /onstittion itself lays do-n strin$ent conditions for a declaration of

nconstittionality, re=irin$ t"erefor t"e concrrence of a ma;ority of t"e mem!ers of t"e

Spreme /ort -"o too part in t"e deli!erations and voted on t"e isse drin$ t"eir session en

!anc. 11 And as esta!lis"ed !y ;d$e made doctrine, t"e /ort -ill assme ;risdiction over a

constittional =estion only if it is s"o-n t"at t"e essential re=isites of a ;dicial in=iry into

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controversy t"e ri$"ts -"ic" t"at instrment secres and $arantees to t"em. T"is

is in trt" all t"at is involved in -"at is termed >;dicial spremacy> -"ic"

properly is t"e po-er of ;dicial revie- nder t"e /onstittion. 1'

T"e cases !efore s cate$orically raise constittional =estions t"at t"is /ort mst cate$orically

resolve. And so -e s"all.

II

?e proceed first to t"e eamination of t"e preliminary isses !efore resolvin$ t"e more serios

c"allen$es to t"e constittionality of t"e several measres involved in t"ese petitions.

T"e proml$ation of .D. No. 6 !y resident 9arcos in t"e eercise of "is po-ers nder martial

la- "as already !een sstained in Gonzales v. /strella and -e find no reason to modify or

reverse it on t"at isse. As for t"e po-er of resident A=ino to proml$ate roc. No. 141 and

E.8. Nos. 66* and 66), t"e same -as at"ori5ed nder Section + of t"e Transitory rovisions of

t"e 1)* /onstittion, =oted a!ove.

T"e said measres -ere issed !y resident A=ino !efore (ly 6, 1)*, -"en t"e /on$ress of

t"e "ilippines -as formally convened and too over le$islative po-er from "er. T"ey are not

>midni$"t> enactments intended to pre:empt t"e le$islatre !ecase E.8. No. 66* -as issed on

(ly 1, 1)*, and t"e ot"er measres, i.e., roc. No. 141 and E.8. No. 66), -ere !ot" issed on

(ly 66, 1)*. Neit"er is it correct to say t"at t"ese measres ceased to !e valid -"en s"e lost "er

le$islative po-er for, lie any statte, t"ey contine to !e in force nless modified or repealed !y

s!se=ent la- or declared invalid !y t"e corts. A statte does not ipso facto !ecome

inoperative simply !ecase of t"e dissoltion of t"e le$islatre t"at enacted it. &y t"e same

toen, resident A=inoCs loss of le$islative po-er did not "ave t"e effect of invalidatin$ all t"e

measres enacted !y "er -"en and as lon$ as s"e possessed it.

Si$nificantly, t"e /on$ress s"e is alle$ed to "ave nderct "as not re;ected !t in fact

s!stantially affirmed t"e c"allen$ed measres and "as specifically provided t"at t"ey s"all !e

sppletory to R.A. No. ++' -"enever not inconsistent -it" its provisions. 1( Indeed, some

portions of t"e said measres, lie t"e creation of t"e '7 !illion fnd in Section 6 of roc. No.

141, and Sections 67 and 61 of E.8. No. 66), "ave !een incorporated !y reference in t"e /AR

La-.1)

T"at fnd, as earlier noted, is itself !ein$ =estioned on t"e $rond t"at it does not conform to

t"e re=irements of a valid appropriation as specified in t"e /onstittion. /learly, "o-ever, roc.

No. 141 is not an appropriation measre even if it does provide for t"e creation of said fnd, for

t"at is not its principal prpose. An appropriation la- is one t"e primary and specific prpose of

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-"ic" is to at"ori5e t"e release of p!lic fnds from t"e treasry.19 T"e creation of t"e fnd is

only incidental to t"e main o!;ective of t"e proclamation, -"ic" is a$rarian reform.

It s"old follo- t"at t"e specific constittional provisions invoed, to -it, Section 6B and

Section 6'2B3 of Article VI, are not applica!le. ?it" particlar reference to Section 6B, t"is

o!viosly cold not "ave !een complied -it" for t"e simple reason t"at t"e #ose of

Representatives, -"ic" no- "as t"e eclsive po-er to initiate appropriation measres, "ad not

yet !een convened -"en t"e proclamation -as issed. T"e le$islative po-er -as t"en solely

vested in t"e resident of t"e "ilippines, -"o em!odied, as it -ere, !ot" "oses of /on$ress.

T"e ar$ment of some of t"e petitioners t"at roc. No. 141 and E.8. No. 66) s"old !e

invalidated !ecase t"ey do not provide for retention limits as re=ired !y Article III, Section B

of t"e /onstittion is no lon$er tena!le. R.A. No. ++' does provide for sc" limits no- in

Section + of t"e la-, -"ic" in fact is one of its most controversial provisions. T"is section

declaresG

Retention Limits. Ecept as ot"er-ise provided in t"is Act, no person may

o-n or retain, directly or indirectly, any p!lic or private a$ricltral land, t"e

si5e of -"ic" s"all vary accordin$ to factors $overnin$ a via!le family:si5ed

farm, sc" as commodity prodced, terrain, infrastrctre, and soil fertility as

determined !y t"e residential A$rarian Reform /oncil 2AR/3 created

"erender, !t in no case s"all retention !y t"e lando-ner eceed five 2'3

"ectares. T"ree 243 "ectares may !e a-arded to eac" c"ild of t"e lando-ner,

s!;ect to t"e follo-in$ =alificationsG 213 t"at "e is at least fifteen 21'3 years of

a$e< and 263 t"at "e is actally tillin$ t"e land or directly mana$in$ t"e farm<rovided, T"at lando-ners -"ose lands "ave !een covered !y residential Decree

No. 6 s"all !e allo-ed to eep t"e area ori$inally retained !y t"em t"erender,

frt"er, T"at ori$inal "omestead $rantees or direct complsory "eirs -"o still o-n

t"e ori$inal "omestead at t"e time of t"e approval of t"is Act s"all retain t"e same

areas as lon$ as t"ey contine to cltivate said "omestead.

T"e ar$ment t"at E.8. No. 66) violates t"e constittional re=irement t"at a !ill s"all "ave only

one s!;ect, to !e epressed in its title, deserves only s"ort attention. It is settled t"at t"e title of

t"e !ill does not "ave to !e a catalo$e of its contents and -ill sffice if t"e matters em!odied in

t"e tet are relevant to eac" ot"er and may !e inferred from t"e title. 20

T"e /ort -ryly o!serves t"at drin$ t"e past dictators"ip, every presidential issance, !y

-"atever name it -as called, "ad t"e force and effect of la- !ecase it came from resident

9arcos. Sc" are t"e -ays of despots. #ence, it is ftile to ar$e, as t"e petitioners do in @.R.

No. )BB, t"at L8I BB cold not "ave repealed .D. No. 6 !ecase t"e former -as only a

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letter of instrction. T"e important t"in$ is t"at it -as issed !y resident 9arcos, -"ose -ord

-as la- drin$ t"at time.

&t for all t"eir peremptoriness, t"ese issances from t"e resident 9arcos still "ad to comply

-it" t"e re=irement for p!lication as t"is /ort "eld in Tanada v. Tuvera. 21 #ence, nless

p!lis"ed in t"e 8fficial @a5ette in accordance -it" Article 6 of t"e /ivil /ode, t"ey cold not

"ave any force and effect if t"ey -ere amon$ t"ose enactments sccessflly c"allen$ed in t"at

case. L8I BB -as p!lis"ed, t"o$", in t"e 8fficial @a5ette dated Novem!er 6),1)+.3

inally, t"ere is t"e contention of t"e p!lic respondent in @.R. No. *B6 t"at t"e -rit of

mandams cannot isse to compel t"e performance of a discretionary act, especially !y a specific

department of t"e $overnment. T"at is tre as a $eneral proposition !t is s!;ect to one

important =alification. /orrectly and cate$orically stated, t"e rle is t"at mandams -ill lie to

compel t"e disc"ar$e of t"e discretionary dty itself !t not to control t"e discretion to !e

eercised. In ot"er -ords, mandams can isse to re=ire action only !t not specific action.

?"enever a dty is imposed pon a p!lic official and an nnecessary and

nreasona!le delay in t"e eercise of sc" dty occrs, if it is a clear dty

imposed !y la-, t"e corts -ill intervene !y t"e etraordinary le$al remedy of

mandams to compel action. If t"e dty is prely ministerial, t"e corts -ill

re=ire specific action. If t"e dty is prely discretionary, t"e corts

!y mandamus -ill re=ire action only. or eample, if an inferior cort, p!lic

official, or !oard s"old, for an nreasona!le len$t" of time, fail to decide a

particlar =estion to t"e $reat detriment of all parties concerned, or a cort

s"old refse to tae ;risdiction of a case -"en t"e la- clearly $ave it ;risdiction mandams -ill isse, in t"e first case to re=ire a decision, and in t"e

second to re=ire t"at ;risdiction !e taen of t"e case. 22

And -"ile it is tre t"at as a rle t"e -rit -ill not !e proper as lon$ as t"ere is still a plain,

speedy and ade=ate remedy availa!le from t"e administrative at"orities, resort to t"e corts

may still !e permitted if t"e isse raised is a =estion of la-. 23

III

T"ere are traditional distinctions !et-een t"e police po-er and t"e po-er of eminent domain t"atlo$ically preclde t"e application of !ot" po-ers at t"e same time on t"e same s!;ect. In t"e

case of -it! of %aguio v. A:ASA, 2% for eample, -"ere a la- re=ired t"e transfer of all

mnicipal -ater-ors systems to t"e NA?ASA in ec"an$e for its assets of e=ivalent vale,

t"e /ort "eld t"at t"e po-er !ein$ eercised -as eminent domain !ecase t"e property involved

-as -"olesome and intended for a p!lic se. roperty condemned nder t"e police po-er is

noios or intended for a noios prpose, sc" as a !ildin$ on t"e ver$e of collapse, -"ic"

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s"old !e demolis"ed for t"e p!lic safety, or o!scene materials, -"ic" s"old !e destroyed in

t"e interest of p!lic morals. T"e confiscation of sc" property is not compensa!le, nlie t"e

tain$ of property nder t"e po-er of epropriation, -"ic" re=ires t"e payment of ;st

compensation to t"e o-ner.

In t"e case of Penns!lvania -oal -o. v. Mahon, 2& (stice #olmes laid do-n t"e limits of t"e

police po-er in a famos ap"orismG >T"e $eneral rle at least is t"at -"ile property may !e

re$lated to a certain etent, if re$lation $oes too far it -ill !e reco$ni5ed as a tain$.> T"e

re$lation t"at -ent >too far> -as a la- pro"i!itin$ minin$ -"ic" mi$"t case t"e s!sidence of

strctres for "man "a!itation constrcted on t"e land srface. T"is -as resisted !y a coal

company -"ic" "ad earlier $ranted a deed to t"e land over its mine !t reserved all minin$ ri$"ts

t"erender, -it" t"e $rantee assmin$ all riss and -aivin$ any dama$e claim. T"e /ort "eld

t"e la- cold not !e sstained -it"ot compensatin$ t"e $rantor. (stice &randeis filed a lone

dissent in -"ic" "e ar$ed t"at t"ere -as a valid eercise of t"e police po-er. #e saidG

Every restriction pon t"e se of property imposed in t"e eercise of t"e police

po-er deprives t"e o-ner of some ri$"t t"eretofore en;oyed, and is, in t"at sense,

an a!rid$ment !y t"e State of ri$"ts in property -it"ot main$ compensation.

&t restriction imposed to protect t"e p!lic "ealt", safety or morals from dan$ers

t"reatened is not a tain$. T"e restriction "ere in =estion is merely t"e

pro"i!ition of a noios se. T"e property so restricted remains in t"e possession

of its o-ner. T"e state does not appropriate it or mae any se of it. T"e state

merely prevents t"e o-ner from main$ a se -"ic" interferes -it" paramont

ri$"ts of t"e p!lic. ?"enever t"e se pro"i!ited ceases to !e noios as it

may !ecase of frt"er c"an$es in local or social conditions t"e restriction -ill"ave to !e removed and t"e o-ner -ill a$ain !e free to en;oy "is property as

"eretofore.

Recent trends, "o-ever, -old indicate not a polari5ation !t a min$lin$ of t"e police po-er and

t"e po-er of eminent domain, -it" t"e latter !ein$ sed as an implement of t"e former lie t"e

po-er of taation. T"e employment of t"e tain$ po-er to ac"ieve a police prpose "as lon$

!een accepted. 2' As for t"e po-er of epropriation, rof. (o"n (. /ostonis of t"e %niversity of

Illinois /olle$e of La- 2referrin$ to t"e earlier case of Eclid v. Am!ler Realty /o., 66 %S 4+',

-"ic" sstained a 5onin$ la- nder t"e police po-er3 maes t"e follo-in$ si$nificant remarsG

Eclid, moreover, -as decided in an era -"en ;d$es located t"e olice and

eminent domain po-ers on different planets. @enerally speain$, t"ey vie-ed

eminent domain as encompassin$ p!lic ac=isition of private property for

improvements t"at -old !e availa!le for p!lic se,> literally constred. To t"e

police po-er, on t"e ot"er "and, t"ey assi$ned t"e less intrsive tas of preventin$

"armfl eternalities a point reflected in t"e Eclid opinionCs reliance on an

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analo$y to nisance la- to !olster its spport of 5onin$. So lon$ as sppression of

a privately at"ored "arm !ore a plasi!le relation to some le$itimate >p!lic

prpose,> t"e pertinent measre need "ave afforded no compensation -"atever.

?it" t"e pro$ressive $ro-t" of $overnmentCs involvement in land se, t"e

distance !et-een t"e t-o po-ers "as contracted considera!ly. Today $overnment

often employs eminent domain interc"an$ea!ly -it" or as a sefl complement to

t"e police po-er:: a trend epressly approved in t"e Spreme /ortCs 1)'B

decision in &erman v. arer, -"ic" !roadened t"e reac" of eminent domainCs

>p!lic se> test to matc" t"at of t"e police po-erCs standard of >p!lic

prpose.> 2(

T"e &erman case sstained a redevelopment pro;ect and t"e improvement of !li$"ted areas in t"e

District of /olm!ia as a proper eercise of t"e police po-er. 8n t"e role of eminent domain in

t"e attainment of t"is prpose, (stice Do$las declaredG

If t"ose -"o $overn t"e District of /olm!ia decide t"at t"e NationCs /apital

s"old !e !eatifl as -ell as sanitary, t"ere is not"in$ in t"e ift" Amendment

t"at stands in t"e -ay.

8nce t"e o!;ect is -it"in t"e at"ority of /on$ress, t"e ri$"t to reali5e it t"ro$"

t"e eercise of eminent domain is clear.

or t"e po-er of eminent domain is merely t"e means to t"e end. 2)

In Penn -entral Transportation -o. v. ew ;or5 -it!, 29 decided !y a +:4 vote in 1)*, t"e %.S

Spreme /ort sstained t"e respondentCs Landmars reservation La- nder -"ic" t"e o-ners

of t"e @rand /entral Terminal "ad not !een allo-ed to constrct a mlti:story office !ildin$

over t"e Terminal, -"ic" "ad !een desi$nated a "istoric landmar. reservation of t"e landmar

-as "eld to !e a valid o!;ective of t"e police po-er. T"e pro!lem, "o-ever, -as t"at t"e o-ners

of t"e Terminal -old !e deprived of t"e ri$"t to se t"e airspace a!ove it alt"o$" ot"er

lando-ners in t"e area cold do so over t"eir respective properties. ?"ile insistin$ t"at t"ere -as

"ere no tain$, t"e /ort nonet"eless reco$ni5ed certain compensatory ri$"ts accrin$ to @rand

/entral Terminal -"ic" it said -old >ndo!tedly miti$ate> t"e loss cased !y t"e re$lation.

T"is >fair compensation,> as "e called it, -as eplained !y rof. /ostonis in t"is -iseG

In retrn for retainin$ t"e Terminal site in its pristine landmar stats, enn /entral -as

at"ori5ed to transfer to nei$"!orin$ properties t"e at"ori5ed !t nsed ri$"ts accrin$ to t"e

site prior to t"e TerminalCs desi$nation as a landmar t"e ri$"ts -"ic" -old "ave !een

e"asted !y t"e '):story !ildin$ t"at t"e city refsed to contenance atop t"e Terminal.

revailin$ !l restrictions on nei$"!orin$ sites -ere proportionately relaed, t"eoretically

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ena!lin$ enn /entral to recop its losses at t"e Terminal site !y constrctin$ or sellin$ to ot"ers

t"e ri$"t to constrct lar$er, "ence more profita!le !ildin$s on t"e transferee sites. 30

T"e cases !efore s present no notty complication insofar as t"e =estion of compensa!le

tain$ is concerned. To t"e etent t"at t"e measres nder c"allen$e merely prescri!e retention

limits for lando-ners, t"ere is an eercise of t"e police po-er for t"e re$lation of private

property in accordance -it" t"e /onstittion. &t -"ere, to carry ot sc" re$lation, it !ecomes

necessary to deprive sc" o-ners of -"atever lands t"ey may o-n in ecess of t"e maimm

area allo-ed, t"ere is definitely a tain$ nder t"e po-er of eminent domain for -"ic" payment

of ;st compensation is imperative. T"e tain$ contemplated is not a mere limitation of t"e se of

t"e land. ?"at is re=ired is t"e srrender of t"e title to and t"e p"ysical possession of t"e said

ecess and all !eneficial ri$"ts accrin$ to t"e o-ner in favor of t"e farmer:!eneficiary. T"is is

definitely an eercise not of t"e police po-er !t of t"e po-er of eminent domain.

?"et"er as an eercise of t"e police po-er or of t"e po-er of eminent domain, t"e several

measres !efore s are c"allen$ed as violative of t"e de process and e=al protection clases.

T"e c"allen$e to roc. No. 141 and E.8. Nos. 66* and 6)) on t"e $rond t"at no retention limits

are prescri!ed "as already !een discssed and dismissed. It is noted t"at alt"o$" t"ey ecited

many !itter ec"an$es drin$ t"e deli!eration of t"e /AR La- in /on$ress, t"e retention limits

finally a$reed pon are, criosly eno$", not !ein$ =estioned in t"ese petitions. ?e t"erefore

do not discss t"em "ere. T"e /ort -ill come to t"e ot"er claimed violations of de process in

connection -it" or eamination of t"e ade=acy of ;st compensation as re=ired nder t"e

po-er of epropriation.

T"e ar$ment of t"e small farmers t"at t"ey "ave !een denied e=al protection !ecase of t"e

a!sence of retention limits "as also !ecome academic nder Section + of R.A. No. ++'.

Si$nificantly, t"ey too "ave not =estioned t"e area of sc" limits. T"ere is also t"e complaint

t"at t"ey s"old not !e made to s"are t"e !rden of a$rarian reform, an o!;ection also made !y

t"e s$ar planters on t"e $rond t"at t"ey !elon$ to a particlar class -it" particlar interests of

t"eir o-n. #o-ever, no evidence "as !een s!mitted to t"e /ort t"at t"e re=isites of a valid

classification "ave !een violated.

/lassification "as !een defined as t"e $ropin$ of persons or t"in$s similar to eac" ot"er in

certain particlars and different from eac" ot"er in t"ese same particlars.31

To !e valid, it mstconform to t"e follo-in$ re=irementsG 213 it mst !e !ased on s!stantial distinctions< 263 it

mst !e $ermane to t"e prposes of t"e la-< 243 it mst not !e limited to eistin$ conditions

only< and 2B3 it mst apply e=ally to all t"e mem!ers of t"e class. 32 T"e /ort finds t"at all

t"ese re=isites "ave !een met !y t"e measres "ere c"allen$ed as ar!itrary and discriminatory.

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E=al protection simply means t"at all persons or t"in$s similarly sitated mst !e treated alie

!ot" as to t"e ri$"ts conferred and t"e lia!ilities imposed. 33 T"e petitioners "ave not s"o-n t"at

t"ey !elon$ to a different class and entitled to a different treatment. T"e ar$ment t"at not only

lando-ners !t also o-ners of ot"er properties mst !e made to s"are t"e !rden of

implementin$ land reform mst !e re;ected. T"ere is a s!stantial distinction !et-een t"ese t-o

classes of o-ners t"at is clearly visi!le ecept to t"ose -"o -ill not see. T"ere is no need to

ela!orate on t"is matter. In any event, t"e /on$ress is allo-ed a -ide lee-ay in providin$ for a

valid classification. Its decision is accorded reco$nition and respect !y t"e corts of ;stice

ecept only -"ere its discretion is a!sed to t"e detriment of t"e &ill of Ri$"ts.

It is -ort" remarin$ at t"is ;nctre t"at a statte may !e sstained nder t"e police po-er only

if t"ere is a concrrence of t"e la-fl s!;ect and t"e la-fl met"od. t ot"er-ise, t"e interests

of t"e p!lic $enerally as distin$is"ed from t"ose of a particlar class re=ire t"e interference of

t"e State and, no less important, t"e means employed are reasona!ly necessary for t"e attainment

of t"e prpose so$"t to !e ac"ieved and not ndly oppressive pon individals.

3%

As t"es!;ect and prpose of a$rarian reform "ave !een laid do-n !y t"e /onstittion itself, -e may

say t"at t"e first re=irement "as !een satisfied. ?"at remains to !e eamined is t"e validity of

t"e met"od employed to ac"ieve t"e constittional $oal.

8ne of t"e !asic principles of t"e democratic system is t"at -"ere t"e ri$"ts of t"e individal are

concerned, t"e end does not ;stify t"e means. It is not eno$" t"at t"ere !e a valid o!;ective< it

is also necessary t"at t"e means employed to prse it !e in eepin$ -it" t"e /onstittion. 9ere

epediency -ill not ecse constittional s"ortcts. T"ere is no =estion t"at not even t"e

stron$est moral conviction or t"e most r$ent p!lic need, s!;ect only to a fe- nota!le

eceptions, -ill ecse t"e !ypassin$ of an individalCs ri$"ts. It is no ea$$eration to say t"at a, person invoin$ a ri$"t $aranteed nder Article III of t"e /onstittion is a ma;ority of one even

as a$ainst t"e rest of t"e nation -"o -old deny "im t"at ri$"t.

T"at ri$"t covers t"e personCs life, "is li!erty and "is property nder Section 1 of Article III of

t"e /onstittion. ?it" re$ard to "is property, t"e o-ner en;oys t"e added protection of Section ),

-"ic" reaffirms t"e familiar rle t"at private property s"all not !e taen for p!lic se -it"ot

;st compensation.

T"is !rin$s s no- to t"e po-er of eminent domain.

IV

Eminent domain is an in"erent po-er of t"e State t"at ena!les it to forci!ly

ac=ire private lands intended for p!lic se pon payment of ;st compensation

to t"e o-ner. 8!viosly, t"ere is no need to epropriate -"ere t"e o-ner is

-illin$ to sell nder terms also accepta!le to t"e prc"aser, in -"ic" case an

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ordinary deed of sale may !e a$reed pon !y t"e parties. 3& It is only -"ere t"e

o-ner is n-illin$ to sell, or cannot accept t"e price or ot"er conditions offered

!y t"e vendee, t"at t"e po-er of eminent domain -ill come into play to assert t"e

paramont at"ority of t"e State over t"e interests of t"e property o-ner. rivate

ri$"ts mst t"en yield to t"e irresisti!le demands of t"e p!lic interest on t"e

time:"onored ;stification, as in t"e case of t"e police po-er, t"at t"e -elfare of

t"e people is t"e spreme la-.

&t for all its primacy and r$ency, t"e po-er of epropriation is !y no means a!solte 2as

indeed no po-er is a!solte3. T"e limitation is fond in t"e constittional in;nction t"at >private

property s"all not !e taen for p!lic se -it"ot ;st compensation> and in t"e a!ndant

;risprdence t"at "as evolved from t"e interpretation of t"is principle. &asically, t"e

re=irements for a proper eercise of t"e po-er areG 213 p!lic se and 263 ;st compensation.

Let s dispose first of t"e ar$ment raised !y t"e petitioners in @.R. No. )417 t"at t"e State

s"old first distri!te p!lic a$ricltral lands in t"e prsit of a$rarian reform instead of

immediately distr!in$ property ri$"ts !y forci!ly ac=irin$ private a$ricltral lands.

arent"etically, it is not correct to say t"at only p!lic a$ricltral lands may !e covered !y t"e

/AR as t"e /onstittion calls for >t"e ;st distri!tion of all a$ricltral lands.> In any event,

t"e decision to redistri!te private a$ricltral lands in t"e manner prescri!ed !y t"e /AR -as

made !y t"e le$islative and eective departments in t"e eercise of t"eir discretion. ?e are not

;stified in revie-in$ t"at discretion in t"e a!sence of a clear s"o-in$ t"at it "as !een a!sed.

A !ecomin$ cortesy admonis"es s to respect t"e decisions of t"e political departments -"en

t"ey decide -"at is no-n as t"e political =estion. As eplained !y /"ief (stice /oncepcion int"e case of Ta6ada v. -uencoG 3'

T"e term >political =estion> connotes -"at it means in ordinary parlance,

namely, a =estion of policy. It refers to >t"ose =estions -"ic", nder t"e

/onstittion, are to !e decided !y t"e people in t"eir soverei$n capacity< or in

re$ard to -"ic" fll discretionary at"ority "as !een dele$ated to t"e le$islative or

eective !ranc" of t"e $overnment.> It is concerned -it" isses dependent pon

t"e -isdom, not le$ality, of a particlar measre.

It is tre t"at t"e concept of t"e political =estion "as !een constricted -it" t"e enlar$ement of ;dicial po-er, -"ic" no- incldes t"e at"ority of t"e corts >to determine -"et"er or not t"ere

"as !een a $rave a!se of discretion amontin$ to lac or ecess of ;risdiction on t"e part of

any !ranc" or instrmentality of t"e @overnment.> 3( Even so, t"is s"old not !e constred as a

license for s to reverse t"e ot"er departments simply !ecase t"eir vie-s may not coincide -it"

ors.

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T"e le$islatre and t"e eective "ave !een seen fit, in t"eir -isdom, to inclde in t"e /AR t"e

redistri!tion of private land"oldin$s 2even as t"e distri!tion of p!lic a$ricltral lands is first

provided for, -"ile also continin$ apace nder t"e !lic Land Act and ot"er co$nate la-s3.

T"e /ort sees no ;stification to interpose its at"ority, -"ic" -e may assert only if -e !elieve

t"at t"e political decision is not n-ise, !t ille$al. ?e do not find it to !e so.

In #.S. v. -handler<0unar :ater Power -ompan!, 3) it -as "eldG

/on$ress "avin$ determined, as it did !y t"e Act of 9arc" 4,1)7) t"at t"e entire

St. 9aryCs river !et-een t"e American !an and t"e international line, as -ell as

all of t"e pland nort" of t"e present s"ip canal, t"ro$"ot its entire len$t", -as

>necessary for t"e prpose of navi$ation of said -aters, and t"e -aters connected

t"ere-it",> t"at determination is conclsive in condemnation proceedin$s

institted !y t"e %nited States nder t"at Act, and t"ere is no room for ;dicial

revie- of t"e ;d$ment of /on$ress ... .

As earlier o!served, t"e re=irement for p!lic se "as already !een settled for s !y t"e

/onstittion itself No less t"an t"e 1)* /"arter calls for a$rarian reform, -"ic" is t"e reason

-"y private a$ricltral lands are to !e taen from t"eir o-ners, s!;ect to t"e prescri!ed

maimm retention limits. T"e prposes specified in .D. No. 6, roc. No. 141 and R.A. No.

++' are only an ela!oration of t"e constittional in;nction t"at t"e State adopt t"e necessary

measres >to encora$e and ndertae t"e ;st distri!tion of all a$ricltral lands to ena!le

farmers -"o are landless to o-n directly or collectively t"e lands t"ey till.> T"at p!lic se, as

prononced !y t"e fndamental la- itself, mst !e !indin$ on s.

T"e second re=irement, i.e., t"e payment of ;st compensation, needs a lon$er and more

t"o$"tfl eamination.

(st compensation is defined as t"e fll and fair e=ivalent of t"e property taen from its o-ner

!y t"e epropriator. 39 It "as !een repeatedly stressed !y t"is /ort t"at t"e measre is not t"e

taerCs $ain !t t"e o-nerCs loss.%0 T"e -ord >;st> is sed to intensify t"e meanin$ of t"e -ord

>compensation> to convey t"e idea t"at t"e e=ivalent to !e rendered for t"e property to !e taen

s"all !e real, s!stantial, fll, ample. %1

It !ears repeatin$ t"at t"e measres c"allen$ed in t"ese petitions contemplate more t"an a merere$lation of t"e se of private lands nder t"e police po-er. ?e deal "ere -it" an actal tain$

of private a$ricltral lands t"at "as dispossessed t"e o-ners of t"eir property and deprived t"em

of all its !eneficial se and en;oyment, to entitle t"em to t"e ;st compensation mandated !y t"e

/onstittion.

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As "eld in $epulic of the Philippines v. -astellvi, %2 t"ere is compensa!le tain$ -"en t"e

follo-in$ conditions concrG 213 t"e epropriator mst enter a private property< 263 t"e entry

mst !e for more t"an a momentary period< 243 t"e entry mst !e nder -arrant or color of le$al

at"ority< 2B3 t"e property mst !e devoted to p!lic se or ot"er-ise informally appropriated or

in;riosly affected< and 2'3 t"e tili5ation of t"e property for p!lic se mst !e in sc" a -ay

as to ost t"e o-ner and deprive "im of !eneficial en;oyment of t"e property. All t"ese re=isites

are envisioned in t"e measres !efore s.

?"ere t"e State itself is t"e epropriator, it is not necessary for it to mae a deposit pon its

tain$ possession of t"e condemned property, as >t"e compensation is a p!lic c"ar$e, t"e $ood

fait" of t"e p!lic is pled$ed for its payment, and all t"e resorces of taation may !e employed

in raisin$ t"e amont.> %3 Nevert"eless, Section 1+2e3 of t"e /AR La- provides t"atG

%pon receipt !y t"e lando-ner of t"e correspondin$ payment or, in case of

re;ection or no response from t"e lando-ner, pon t"e deposit -it" an accessi!le

!an desi$nated !y t"e DAR of t"e compensation in cas" or in L& !onds in

accordance -it" t"is Act, t"e DAR s"all tae immediate possession of t"e land

and s"all re=est t"e proper Re$ister of Deeds to isse a Transfer /ertificate of

Title 2T/T3 in t"e name of t"e Rep!lic of t"e "ilippines. T"e DAR s"all

t"ereafter proceed -it" t"e redistri!tion of t"e land to t"e =alified !eneficiaries.

8!;ection is raised, "o-ever, to t"e manner of fiin$ t"e ;st compensation, -"ic" it is claimed

is entrsted to t"e administrative at"orities in violation of ;dicial prero$atives. Specific

reference is made to Section 1+2d3, -"ic" provides t"at in case of t"e re;ection or disre$ard !y

t"e o-ner of t"e offer of t"e $overnment to !y "is land:

... t"e DAR s"all condct smmary administrative proceedin$s to determine t"e

compensation for t"e land !y re=irin$ t"e lando-ner, t"e L& and ot"er

interested parties to s!mit evidence as to t"e ;st compensation for t"e land,

-it"in fifteen 21'3 days from t"e receipt of t"e notice. After t"e epiration of t"e

a!ove period, t"e matter is deemed s!mitted for decision. T"e DAR s"all decide

t"e case -it"in t"irty 2473 days after it is s!mitted for decision.

To !e sre, t"e determination of ;st compensation is a fnction addressed to t"e corts of ;stice

and may not !e srped !y any ot"er !ranc" or official of t"e $overnment. /P9A v. 0ula! %% resolved a c"allen$e to several decrees proml$ated !y resident 9arcos providin$ t"at

t"e ;st compensation for property nder epropriation s"old !e eit"er t"e assessment of t"e

property !y t"e $overnment or t"e s-orn valation t"ereof !y t"e o-ner, -"ic"ever -as lo-er.

In declarin$ t"ese decrees nconstittional, t"e /ort "eld t"ro$" 9r. (stice #$o E.

@tierre5, (r.G

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T"e met"od of ascertainin$ ;st compensation nder t"e aforecited decrees

constittes impermissi!le encroac"ment on ;dicial prero$atives. It tends to

render t"is /ort intile in a matter -"ic" nder t"is /onstittion is reserved to it

for final determination.

T"s, alt"o$" in an epropriation proceedin$ t"e cort tec"nically -old still

"ave t"e po-er to determine t"e ;st compensation for t"e property, follo-in$ t"e

applica!le decrees, its tas -old !e rele$ated to simply statin$ t"e lo-er vale of

t"e property as declared eit"er !y t"e o-ner or t"e assessor. As a necessary

conse=ence, it -old !e seless for t"e cort to appoint commissioners nder

Rle + of t"e Rles of /ort. 9oreover, t"e need to satisfy t"e de process

clase in t"e tain$ of private property is seemin$ly flfilled since it cannot !e

said t"at a ;dicial proceedin$ -as not "ad !efore t"e actal tain$. #o-ever, t"e

strict application of t"e decrees drin$ t"e proceedin$s -old !e not"in$ s"ort of

a mere formality or c"arade as t"e cort "as only to c"oose !et-een t"e valationof t"e o-ner and t"at of t"e assessor, and its c"oice is al-ays limited to t"e lo-er

of t"e t-o. T"e cort cannot eercise its discretion or independence in

determinin$ -"at is ;st or fair. Even a $rade sc"ool ppil cold s!stitte for t"e

;d$e insofar as t"e determination of constittional ;st compensation is

concerned.

In t"e present petition, -e are once a$ain confronted -it" t"e same =estion of

-"et"er t"e corts nder .D. No. 1'44, -"ic" contains t"e same provision on ;st compensation as its predecessor decrees, still "ave t"e po-er and at"ority to

determine ;st compensation, independent of -"at is stated !y t"e decree and to

t"is effect, to appoint commissioners for sc" prpose.

T"is time, -e ans-er in t"e affirmative.

It is violative of de process to deny t"e o-ner t"e opportnity to prove t"at t"e

valation in t"e ta docments is nfair or -ron$. And it is replsive to t"e !asicconcepts of ;stice and fairness to allo- t"e "ap"a5ard -or of a minor

!reacrat or cler to a!soltely prevail over t"e ;d$ment of a cort proml$ated

only after epert commissioners "ave actally vie-ed t"e property, after evidence

and ar$ments pro and con "ave !een presented, and after all factors and

considerations essential to a fair and ;st determination "ave !een ;diciosly

evalated.

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A readin$ of t"e aforecited Section 1+2d3 -ill readily s"o- t"at it does not sffer from t"e

ar!itrariness t"at rendered t"e c"allen$ed decrees constittionally o!;ectiona!le. Alt"o$" t"e

proceedin$s are descri!ed as smmary, t"e lando-ner and ot"er interested parties are

nevert"eless allo-ed an opportnity to s!mit evidence on t"e real vale of t"e property. &t

more importantly, t"e determination of t"e ;st compensation !y t"e DAR is not !y any means

final and conclsive pon t"e lando-ner or any ot"er interested party, for Section 1+2f3 clearly

providesG

Any party -"o disa$rees -it" t"e decision may !rin$ t"e matter to t"e cort of

proper ;risdiction for final determination of ;st compensation.

T"e determination made !y t"e DAR is only preliminary nless accepted !y all parties

concerned. 8t"er-ise, t"e corts of ;stice -ill still "ave t"e ri$"t to revie- -it" finality t"e said

determination in t"e eercise of -"at is admittedly a ;dicial fnction.

T"e second and more serios o!;ection to t"e provisions on ;st compensation is not as easily

resolved.

T"is refers to Section 1* of t"e /AR La- providin$ in fll as follo-sG

SE/. 1*. Valation and 9ode of /ompensation. T"e L& s"all compensate t"e

lando-ner in sc" amont as may !e a$reed pon !y t"e lando-ner and t"e DAR

and t"e L&, in accordance -it" t"e criteria provided for in Sections 1+ and 1,

and ot"er pertinent provisions "ereof, or as may !e finally determined !y t"e

cort, as t"e ;st compensation for t"e land.

T"e compensation s"all !e paid in one of t"e follo-in$ modes, at t"e option of t"e

lando-nerG

213 /as" payment, nder t"e follo-in$ terms and conditionsG

2a3 or lands a!ove fifty 2'73 "ectares, insofar as t"e

ecess "ectara$e is concerned T-enty:five

percent 26'H3 cas", t"e !alance to !e paid in

$overnment financial instrments ne$otia!le at any

time.

2!3 or lands a!ove t-enty:for 26B3 "ectares and

p to fifty 2'73 "ectares T"irty percent 247H3

cas", t"e !alance to !e paid in $overnment financial

instrments ne$otia!le at any time.

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2c3 or lands t-enty:for 26B3 "ectares and !elo-

T"irty:five percent 24'H3 cas", t"e !alance to !e

paid in $overnment financial instrments ne$otia!le

at any time.

263 S"ares of stoc in $overnment:o-ned or controlled corporations, L&

preferred s"ares, p"ysical assets or ot"er =alified investments in accordance -it"

$idelines set !y t"e AR/<

243 Ta credits -"ic" can !e sed a$ainst any ta lia!ility<

2B3 L& !onds, -"ic" s"all "ave t"e follo-in$ featresG

2a3 9aret interest rates ali$ned -it" )1:day

treasry !ill rates. Ten percent 217H3 of t"e face

vale of t"e !onds s"all matre every year from t"e

date of issance ntil t"e tent" 217t"3 yearG

rovided, T"at s"old t"e lando-ner c"oose to

fore$o t"e cas" portion, -"et"er in fll or in part, "e

s"all !e paid correspondin$ly in L& !onds<

2!3 Transfera!ility and ne$otia!ility. Sc" L&

!onds may !e sed !y t"e lando-ner, "is

sccessors:in: interest or "is assi$ns, p to t"e

amont of t"eir face vale, for any of t"e follo-in$G

2i3 Ac=isition of land or ot"er real properties of t"e

$overnment, incldin$ assets nder t"e Asset

rivati5ation ro$ram and ot"er assets foreclosed

!y $overnment financial instittions in t"e same

province or re$ion -"ere t"e lands for -"ic" t"e

!onds -ere paid are sitated<

2ii3 Ac=isition of s"ares of stoc of $overnment:

o-ned or controlled corporations or s"ares of stoc o-ned !y t"e $overnment in private corporations<

2iii3 S!stittion for srety or !ail !onds for t"e

provisional release of accsed persons, or for

performance !onds<

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2iv3 Secrity for loans -it" any $overnment

financial instittion, provided t"e proceeds of t"e

loans s"all !e invested in an economic enterprise,

prefera!ly in a small and medim: scale indstry, in

t"e same province or re$ion as t"e land for -"ic"

t"e !onds are paid<

2v3 ayment for varios taes and fees to

$overnmentG rovided, T"at t"e se of t"ese !onds

for t"ese prposes -ill !e limited to a certain

percenta$e of t"e otstandin$ !alance of t"e

financial instrments< rovided, frt"er, T"at t"e

AR/ s"all determine t"e percenta$es mentioned

a!ove<

2vi3 ayment for tition fees of t"e immediate

family of t"e ori$inal !ond"older in $overnment

niversities, colle$es, trade sc"ools, and ot"er

instittions<

2vii3 ayment for fees of t"e immediate family of

t"e ori$inal !ond"older in $overnment "ospitals<

and

2viii3 Sc" ot"er ses as t"e AR/ may from timeto time allo-.

T"e contention of t"e petitioners in @.R. No. ) is t"at t"e a!ove provision is

nconstittional insofar as it re=ires t"e o-ners of t"e epropriated properties to accept ;st

compensation t"erefor in less t"an money, -"ic" is t"e only medim of payment allo-ed. In

spport of t"is contention, t"ey cite ;risprdence "oldin$ t"atG

T"e fndamental rle in epropriation matters is t"at t"e o-ner of t"e property

epropriated is entitled to a ;st compensation, -"ic" s"old !e neit"er more nor

less, -"enever it is possi!le to mae t"e assessment, t"an t"e money e=ivalent of said property. (st compensation "as al-ays !een nderstood to !e t"e ;st and

complete e=ivalent of t"e loss -"ic" t"e o-ner of t"e t"in$ epropriated "as to

sffer !y reason of t"e epropriation . %& 2Emp"asis spplied.3

In (.9. Ta5on /o. v. Land Tenre Administration, %' t"is /ort "eldG

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It is -ell:settled t"at ;st compensation means t"e e=ivalent for t"e vale of t"e

property at t"e time of its tain$. Anyt"in$ !eyond t"at is more, and anyt"in$

s"ort of t"at is less, t"an ;st compensation. It means a fair and fll e=ivalent for

t"e loss sstained, -"ic" is t"e measre of t"e indemnity, not -"atever $ain

-old accre to t"e epropriatin$ entity. T"e maret vale of t"e land taen is t"e

;st compensation to -"ic" t"e o-ner of condemned property is entitled, t"e

maret vale !ein$ t"at sm of money -"ic" a person desiros, !t not compelled

to !y, and an o-ner, -illin$, !t not compelled to sell, -old a$ree on as a price

to !e $iven and received for sc" property. 2Emp"asis spplied.3

In t"e %nited States, -"ere mc" of or ;risprdence on t"e s!;ect "as !een derived, t"e

-ei$"t of at"ority is also to t"e effect t"at ;st compensation for property epropriated is

paya!le only in money and not ot"er-ise. T"s

T"e medim of payment of compensation is ready money or cas". T"e condemnor

cannot compel t"e o-ner to accept anyt"in$ !t money, nor can t"e o-ner compel

or re=ire t"e condemnor to pay "im on any ot"er !asis t"an t"e vale of t"e

property in money at t"e time and in t"e manner prescri!ed !y t"e /onstittion

and t"e stattes. ?"en t"e po-er of eminent domain is resorted to, t"ere mst !e

a standard medim of payment, !indin$ pon !ot" parties, and t"e la- "as fied

t"at standard as money in cas". %( 2Emp"asis spplied.3

art cas" and deferred payments are not and cannot, in t"e natre of t"in$s, !e

re$arded as a relia!le and constant standard of compensation. %)

>(st compensation> for property taen !y condemnation means a fair e=ivalent

in money, -"ic" mst !e paid at least -it"in a reasona!le time after t"e tain$,

and it is not -it"in t"e po-er of t"e Le$islatre to s!stitte for sc" payment

ftre o!li$ations, !onds, or ot"er vala!le advanta$e. %9 2Emp"asis spplied.3

It cannot !e denied from t"ese cases t"at t"e traditional medim for t"e payment of ;st

compensation is money and no ot"er. And so, conforma!ly, "as ;st compensation !een paid in

t"e past solely in t"at medim. #o-ever, -e do not deal "ere -it" t"e traditional ecercise of t"e

po-er of eminent domain. T"is is not an ordinary epropriation -"ere only a specific property of

relatively limited area is so$"t to !e taen !y t"e State from its o-ner for a specific and per"apslocal prpose.

?"at -e deal -it" "ere is a revoltionary ind of epropriation.

T"e epropriation !efore s affects all private a$ricltral lands -"enever fond and of -"atever

ind as lon$ as t"ey are in ecess of t"e maimm retention limits allo-ed t"eir o-ners. T"is

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8n t"e ot"er "and, t"ere is not"in$ in t"e records eit"er t"at militates a$ainst t"e assmptions -e

are main$ of t"e $eneral sentiments and intention of t"e mem!ers on t"e content and manner of

t"e payment to !e made to t"e lando-ner in t"e li$"t of t"e ma$nitde of t"e ependitre and t"e

limitations of t"e epropriator.

?it" t"ese assmptions, t"e /ort "ere!y declares t"at t"e content and manner of t"e ;st

compensation provided for in t"e afore: =oted Section 1* of t"e /AR La- is not violative of

t"e /onstittion. ?e do not mind admittin$ t"at a certain de$ree of pra$matism "as inflenced

or decision on t"is isse, !t after all t"is /ort is not a cloistered instittion removed from t"e

realities and demands of society or o!livios to t"e need for its en"ancement. T"e /ort is as

actely anios as t"e rest of or people to see t"e $oal of a$rarian reform ac"ieved at last after

t"e frstrations and deprivations of or peasant masses drin$ all t"ese disappointin$ decades.

?e are a-are t"at invalidation of t"e said section -ill reslt in t"e nllification of t"e entire

pro$ram, illin$ t"e farmerCs "opes even as t"ey approac" reali5ation and resrrectin$ t"e spectre

of discontent and dissent in t"e restless contryside. T"at is not in or vie- t"e intention of t"e/onstittion, and t"at is not -"at -e s"all decree today.

Acceptin$ t"e t"eory t"at payment of t"e ;st compensation is not al-ays re=ired to !e made

flly in money, -e find frt"er t"at t"e proportion of cas" payment to t"e ot"er t"in$s of vale

constittin$ t"e total payment, as determined on t"e !asis of t"e areas of t"e lands epropriated,

is not ndly oppressive pon t"e lando-ner. It is noted t"at t"e smaller t"e land, t"e !i$$er t"e

payment in money, primarily !ecase t"e small lando-ner -ill !e needin$ it more t"an t"e !i$

lando-ners, -"o can afford a !i$$er !alance in !onds and ot"er t"in$s of vale. No less

importantly, t"e $overnment financial instrments main$ p t"e !alance of t"e payment are

>ne$otia!le at any time.> T"e ot"er modes, -"ic" are lie-ise availa!le to t"e lando-ner at "isoption, are also not nreasona!le !ecase payment is made in s"ares of stoc, L& !onds, ot"er

properties or assets, ta credits, and ot"er t"in$s of vale e=ivalent to t"e amont of ;st

compensation.

Admittedly, t"e compensation contemplated in t"e la- -ill case t"e lando-ners, !i$ and small,

not a little inconvenience. As already remared, t"is cannot !e avoided. Nevert"eless, it is

devotly "oped t"at t"ese contrymen of ors, conscios as -e no- t"ey are of t"e need for

t"eir fore!earance and even sacrifice, -ill not !e$rd$e s t"eir indispensa!le s"are in t"e

attainment of t"e ideal of a$rarian reform. 8t"er-ise, or prsit of t"is elsive $oal -ill !e lie

t"e =est for t"e #oly @rail.

T"e complaint a$ainst t"e effects of non:re$istration of t"e land nder E.8. No. 66) does not

seem to !e via!le any more as it appears t"at Section B of t"e said 8rder "as !een sperseded !y

Section 1B of t"e /AR La-. T"is repeats t"e re=isites of re$istration as em!odied in t"e earlier

measre !t does not provide, as t"e latter did, t"at in case of failre or refsal to re$ister t"e

land, t"e valation t"ereof s"all !e t"at $iven !y t"e provincial or city assessor for ta prposes.

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8n t"e contrary, t"e /AR La- says t"at t"e ;st compensation s"all !e ascertained on t"e !asis

of t"e factors mentioned in its Section 1 and in t"e manner provided for in Section 1+.

T"e last ma;or c"allen$e to /AR is t"at t"e lando-ner is divested of "is property even !efore

actal payment to "im in fll of ;st compensation, in contravention of a -ell: accepted principle

of eminent domain.

T"e reco$ni5ed rle, indeed, is t"at title to t"e property epropriated s"all pass from t"e o-ner to

t"e epropriator only pon fll payment of t"e ;st compensation. (risprdence on t"is settled

principle is consistent !ot" "ere and in ot"er democratic ;risdictions. T"sG

Title to property -"ic" is t"e s!;ect of condemnation proceedin$s does not vest t"e condemnor

ntil t"e ;d$ment fiin$ ;st compensation is entered and paid, !t t"e condemnorCs title relates

!ac to t"e date on -"ic" t"e petition nder t"e Eminent Domain Act, or t"e commissionerCs

report nder t"e Local Improvement Act, is filed.&1

... alt"o$" t"e ri$"t to appropriate and se land taen for a canal is complete at t"e time of entry,

title to t"e property taen remains in t"e o-ner ntil payment is actally made. &2 2Emp"asis

spplied.3

In ennedy v. Indianapolis, &3 t"e %S Spreme /ort cited several cases "oldin$ t"at title to

property does not pass to t"e condemnor ntil ;st compensation "ad actally !een made. In fact,

t"e decisions appear to !e niformly to t"is effect. As early as 1*4*, in $uottom v. McLure, &% it

-as "eld t"at >actal payment to t"e o-ner of t"e condemned property -as a condition precedent

to t"e investment of t"e title to t"e property in t"e State> al!eit >not to t"e appropriation of it to

p!lic se.> In $e4ford v. =night, && t"e /ort of Appeals of Ne- Yor said t"at t"e constrction

pon t"e stattes -as t"at t"e fee did not vest in t"e State ntil t"e payment of t"e compensation

alt"o$" t"e at"ority to enter pon and appropriate t"e land -as complete prior to t"e payment.

ennedy frt"er said t"at >!ot" on principle and at"ority t"e rle is ... t"at t"e ri$"t to enter on

and se t"e property is complete, as soon as t"e property is actally appropriated nder t"e

at"ority of la- for a p!lic se, ut that the title does not pass from the owner without his

consent, until just compensation has een made to him.>

8r o-n Spreme /ort "as "eld in ?isa!an $efining -o. v. -amus and Paredes, &' t"atG

If t"e la-s -"ic" -e "ave e"i!ited or cited in t"e precedin$ discssion are

attentively eamined it -ill !e apparent t"at t"e met"od of epropriation adopted

in t"is ;risdiction is sc" as to afford a!solte reassrance t"at no piece of land

can e finall! and irrevocal! ta5en from an unwilling owner until compensation

is paid ... . 2Emp"asis spplied.3

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It is tre t"at .D. No. 6 epressly ordered t"e emancipation of tenant:farmer as 8cto!er 61,

1)6 and declared t"at "e s"all >!e deemed t"e o-ner> of a portion of land consistin$ of a

family:si5ed farm ecept t"at >no title to t"e land o-ned !y "im -as to !e actally issed to "im

nless and ntil "e "ad !ecome a fll:fled$ed mem!er of a dly reco$ni5ed farmersC

cooperative.> It -as nderstood, "o-ever, t"at fll payment of t"e ;st compensation also "ad to

!e made first, conforma!ly to t"e constittional re=irement.

?"en E.8. No. 66*, cate$orically stated in its Section 1 t"atG

All =alified farmer:!eneficiaries are no- deemed fll o-ners as of 8cto!er 61,

1)6 of t"e land t"ey ac=ired !y virte of residential Decree No. 6. 2Emp"asis

spplied.3

it -as o!viosly referrin$ to lands already validly ac=ired nder t"e said decree, after proof of

fll:fled$ed mem!ers"ip in t"e farmersC cooperatives and fll payment of ;st compensation.

#ence, it -as also perfectly proper for t"e 8rder to also provide in its Section 6 t"at t"e >lease

rentals paid to t"e lando-ner !y t"e farmer: !eneficiary after 8cto!er 61, 1)6 2pendin$ transfer

of o-ners"ip after fll payment of ;st compensation3, s"all !e considered as advance payment

for t"e land.>

T"e /AR La-, for its part, conditions t"e transfer of possession and o-ners"ip of t"e land to

t"e $overnment on receipt !y t"e lando-ner of t"e correspondin$ payment or t"e deposit !y t"e

DAR of t"e compensation in cas" or L& !onds -it" an accessi!le !an. %ntil t"en, title also

remains -it" t"e lando-ner. &( No otri$"t c"an$e of o-ners"ip is contemplated eit"er.

#ence, t"e ar$ment t"at t"e assailed measres violate de process !y ar!itrarily transferrin$

title !efore t"e land is flly paid for mst also !e re;ected.

It is -ort" stressin$ at t"is point t"at all ri$"ts ac=ired !y t"e tenant:farmer nder .D. No. 6,

as reco$ni5ed nder E.8. No. 66*, are retained !y "im even no- nder R.A. No. ++'. T"is

s"old conter:!alance t"e epress provision in Section + of t"e said la- t"at >t"e lando-ners

-"ose lands "ave !een covered !y residential Decree No. 6 s"all !e allo-ed to eep t"e area

ori$inally retained !y t"em t"erender, frt"er, T"at ori$inal "omestead $rantees or direct

complsory "eirs -"o still o-n t"e ori$inal "omestead at t"e time of t"e approval of t"is Act

s"all retain t"e same areas as lon$ as t"ey contine to cltivate said "omestead.>

In connection -it" t"ese retained ri$"ts, it does not appear in @.R. No. *B6 t"at t"e appeal

filed !y t"e petitioners -it" t"e 8ffice of t"e resident "as already !een resolved. Alt"o$" -e

"ave said t"at t"e doctrine of e"astion of administrative remedies need not preclde immediate

resort to ;dicial action, t"ere are factal isses t"at "ave yet to !e eamined on t"e

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administrative level, especially t"e claim t"at t"e petitioners are not covered !y L8I BB !ecase

t"ey do not o-n ot"er a$ricltral lands t"an t"e s!;ects of t"eir petition.

8!viosly, t"e /ort cannot resolve t"ese isses. In any event, assmin$ t"at t"e petitioners "ave

not yet eercised t"eir retention ri$"ts, if any, nder .D. No. 6, t"e /ort "olds t"at t"ey are

entitled to t"e ne- retention ri$"ts provided for !y R.A. No. ++', -"ic" in fact are on t"e -"ole

more li!eral t"an t"ose $ranted !y t"e decree.

V

T"e /AR La- and t"e ot"er enactments also involved in t"ese cases "ave !een t"e s!;ect of

!itter attac from t"ose -"o point to t"e s"ortcomin$s of t"ese measres and as t"at t"ey !e

scrapped entirely. To !e sre, t"ese enactments are less t"an perfect< indeed, t"ey s"old !e

continosly re:eamined and re"oned, t"at t"ey may !e s"arper instrments for t"e !etter

protection of t"e farmerCs ri$"ts. &t -e "ave to start some-"ere. In t"e prsit of a$rarian

reform, -e do not tread on familiar $rond !t $rope on terrain fra$"t -it" pitfalls and

epected difficlties. T"is is inevita!le. T"e /AR La- is not a tried and tested pro;ect. 8n t"e

contrary, to se (stice #olmesCs -ords, >it is an eperiment, as all life is an eperiment,> and so

-e learn as -e ventre for-ard, and, if necessary, !y or o-n mistaes. ?e cannot epect

perfection alt"o$" -e s"old strive for it !y all means. 9eantime, -e str$$le as !est -e can in

freein$ t"e farmer from t"e iron s"acles t"at "ave nconsciona!ly, and for so lon$, fettered "is

sol to t"e soil.

&y t"e decision -e reac" today, all ma;or le$al o!stacles to t"e compre"ensive a$rarian reform

pro$ram are removed, to clear t"e -ay for t"e tre freedom of t"e farmer. ?e may no- $limpset"e day "e -ill !e released not only from -ant !t also from t"e eploitation and disdain of t"e

past and from "is o-n feelin$s of inade=acy and "elplessness. At last "is servitde -ill !e

ended forever. At last t"e farm on -"ic" "e toils -ill !e "is farm. It -ill !e "is portion of t"e

9ot"er Eart" t"at -ill $ive "im not only t"e staff of life !t also t"e ;oy of livin$. And -"ere

once it !red for "im only deep despair, no- can "e see in it t"e frition of "is "opes for a more

flfillin$ ftre. No- at last can "e !anis" from "is small plot of eart" "is insecrities and dar

resentments and >re!ild in it t"e msic and t"e dream.>

?#ERE8RE, t"e /ort "olds as follo-sG

1. R.A. No. ++', .D. No. 6, roc. No. 141, and E.8. Nos. 66* and 66) are

S%STAINED a$ainst all t"e constittional o!;ections raised in t"e "erein

petitions.

6. Title to all epropriated properties s"all !e transferred to t"e State only pon

fll payment of compensation to t"eir respective o-ners.

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4. All ri$"ts previosly ac=ired !y t"e tenant: farmers nder .D. No. 6 are

retained and reco$ni5ed.

B. Lando-ners -"o -ere na!le to eercise t"eir ri$"ts of retention nder .D.

No. 6 s"all en;oy t"e retention ri$"ts $ranted !y R.A. No. ++' nder t"e

conditions t"erein prescri!ed.

'. S!;ect to t"e a!ove:mentioned rlin$s all t"e petitions are DIS9ISSED,

-it"ot prononcement as to costs.

S8 8RDERED.

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