cruz vs denr secretary

7/23/2019 Cruz vs DENR Secretary

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G.R. No. 135385 December 6, 2000

ISAGANI CRUZ and CESAR EUROA, petitioners,

vs.

SECRE!AR" O# EN$IRON%EN! AND NA!URA& RESOURCES, SECRE!AR" O#

'UDGE! AND %ANAGE%EN! and C(AIR%AN and CO%%ISSIONERS O# !(ENA!IONA& CO%%ISSION ON INDIGENOUS EO&ES, respondents.

(ON. )UAN % .#&A$IER, (ON. ONCIANO 'ENNAGEN, 'A"ANI ASCARRAGA,

ED!A%I %ANSA"ANGAN, 'ASI&IO *ANDAG, E$E&"N DUNUAN, "AO% !UGAS,

A&#RE%O CARIANO, &I'ERA!O A. GA'IN, %A!ERNIDAD %. CO&AS, NARCISA

%. DA&UINES, 'AI +IRA%CONNIE SA!URNO, 'AE %&O%O'EA!RIZ !.

A'ASA&A, DA!U 'A&I!UNG!UNGAN!ONIO D. &U%ANDONG, DA!U

%AN!U%U+A* !EO#IS!O SA'ASA&ES, DA!U EDUAARDO 'ANDA, DA!U )OE&

UNAD, DA!U RA%ON 'A"AAN, !I%UA" )OSE ANO", !I%UA" %ACARIO D.

SA&ACAO, !I%UA" ED*IN '. ENDING, DA!U SA(A%ONG %A&ANA* $I, DA!U

'EN ENDAO CA'IGON, 'AI NANANA"&IZA SA*A", 'A" INA" DA"A

%E&INDA S. RE"%UNDO, 'AI !INANG(AGA (E&INI!A !. ANGAN, DA!U%A+AU+A* ADO&INO &. SA*A", DA!U %AUDA"A*CRISEN SA*A", $IC+"

%A+A", &OURDES D. A%OS, GI&'ER! . (OGGANG, !ERESA GASAR, %ANUE&

S. ONA&AN, %IA GRACE &. GIRON, ROSE%ARIE G. E, 'ENI!O CARINO,

)OSE( )UDE CARAN!ES, &"NE!!E CARAN!ES$I$A&, &ANG&E" SEGUNDO,

SA!UR S. 'UGNA", CAR&ING DO%U&O!, ANDRES %ENDIOGRIN, &EOO&DO

A'UGAN, $IRGI&IO CA"E!ANO, CONC(I!A G. DESCAGA, &E$" ES!E$ES,

ODE!!E G. ES!E$EZ, RODO&#O C. AGUI&AR, %AURO $A&ONES, EE (.

A!ONG, O#E&IA !. DA$I, ER#EC!O '. GUINOSAO, *A&!ER N. !I%O&, %ANUE&

!. SE&EN, OSCAR DA&UN(A", RICO O. SU&A!AN, RA##" %A&INDA, A&#REDO

A'I&&ANOS, )ESSIE ANDI&A', %IR&ANDO (. %ANG+U&IN!AS, SA%IE

SA!URNO, RO%EO A. &INDA(A", ROE& S. %ANSANGCAGAN, A-UI!O S.&IESES, #I&IE G. SA*A", (ER%INIA S. SA*A", )U&IUS S. SA*A", &EONARDA

SA*A", )I%%" UG"U', SA&$ADOR !IONGSON, $ENANCIO AANG, %ADION

%A&ID, SU+I% %A&ID, NENENG %A&ID, %ANG+A!ADONG AUGUS!O DIANO,

)OSE(INE %. A&'ESO, %ORENO %A&ID, %ARIO %ANGCA&, #E&A"

DIA%I&ING, SA&O%E . SARZA, #E&IE . 'AGON, SA%%" SA&NUNGAN,

AN!ONIO D. E%'A, NOR%A %AANSAGONOS, RO%EO SA&IGA, SR., )ERSON .

GERADA, RENA!O !. 'AGON, )R., SARING %ASA&ONG, SO&EDAD %. GERARDA,

E&IZA'E!( &. %ENDI, %ORAN!E S. !I*AN, DANI&O %. %A&UDAO, %INORS

%ARICE& %A&ID, rere/ened b er aer CORNE&IO %A&ID, %ARCE&INO %.

&ADRA, rere/ened b er aer %ONICO D. &ADRA, )ENN"&"N %A&ID,

rere/ened b er aer !ON" %A&ID, ARIE& %. E$ANGE&IS!A, rere/ened b er

moer &INA" 'A&'UENA, ED*ARD %. E%U", SR., SUSAN 'O&ANIO, OND, U&A

'A!O '4&AAN !RI'A& #AR%ER4S ASSOCIA!ION, IN!EREO&E4S EC(ANGE,

INC. and GREEN #ORU%*ES!ERN $ISA"AS, intervenors.

CO%%ISSION ON (U%AN RIG(!S, intervenor.

I+A&A(AN INDIGENOUS EO&E and (ARI'ON #OUNDA!ION #OR !(E

CONSER$A!ION O# NA!URA& RESOURCES, INC., intervenor.

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R E S O L U T I O N

PER CURIAM:

Petitioners Isagani Cruz and Cesar Europa brought this suit for prohibition and mandamus as

itizens and ta!pa"ers# assai$ing the onstitutiona$it" of ertain provisions of Repub$i %t No.&'() *R.%. &'()+# other,ise -no,n as the Indigenous Peop$es Rights %t of )( *IPR%+# and

its Imp$ementing Ru$es and Regu$ations *Imp$ementing Ru$es+.

In its reso$ution of September /# )&# the Court re0uired respondents to omment.) In

omp$iane# respondents Chairperson and Commissioners of the Nationa$ Commission onIndigenous Peop$es *NCIP+# the government agen" reated under the IPR% to imp$ement its

provisions# fi$ed on Otober )'# )& their Comment to the Petition# in ,hih the" defend the

onstitutiona$it" of the IPR% and pra" that the petition be dismissed for $a- of merit.

On Otober )# )&# respondents Seretar" of the 1epartment of Environment and Natura$

Resoures *1ENR+ and Seretar" of the 1epartment of 2udget and 3anagement *123+ fi$edthrough the So$iitor 4enera$ a onso$idated Comment. The So$iitor 4enera$ is of the vie, that

the IPR% is part$" unonstitutiona$ on the ground that it grants o,nership over natura$ resouresto indigenous peop$es and pra"s that the petition be granted in part.

On November )5# )&# a group of intervenors# omposed of Sen. 6uan 7$avier# one of the

authors of the IPR%# 3r. Poniano 2ennagen# a member of the )&8 Constitutiona$ Commission#

and the $eaders and members of ))/ groups of indigenous peop$es *7$avier# et. a$+# fi$ed their3otion for Leave to Intervene. The" 9oin the NCIP in defending the onstitutiona$it" of IPR%

and pra"ing for the dismissa$ of the petition.

On 3arh //# )# the Commission on :uman Rights *C:R+ $i-e,ise fi$ed a 3otion toIntervene and;or to %ppear as %mius Curiae. The C:R asserts that IPR% is an e!pression of the prinip$e of parens patriae and that the State has the responsibi$it" to protet and guarantee the

rights of those ,ho are at a serious disadvantage $i-e indigenous peop$es. 7or this reason it pra"s

that the petition be dismissed.

On 3arh /'# )# another group# omposed of the I-a$ahan Indigenous Peop$e and the

:aribon 7oundation for the Conservation of Natura$ Resoures# In. *:aribon# et a$.+# fi$ed a

motion to Intervene ,ith attahed Comment<in<Intervention. The" agree ,ith the NCIP and

7$avier# et a$. that IPR% is onsistent ,ith the Constitution and pra" that the petition for prohibition and mandamus be dismissed.

The motions for intervention of the aforesaid groups and organizations ,ere granted.

Ora$ arguments ,ere heard on %pri$ )'# ). Thereafter# the parties and intervenors fi$ed their

respetive memoranda in ,hih the" reiterate the arguments addued in their ear$ier p$eadingsand during the hearing.

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Petitioners assai$ the onstitutiona$it" of the fo$$o,ing provisions of the IPR% and its

Imp$ementing Ru$es on the ground that the" amount to an un$a,fu$ deprivation of the State=s

o,nership over $ands of the pub$i domain as ,e$$ as minera$s and other natura$ resourestherein# in vio$ation of the rega$ian dotrine embodied in Setion /# %rti$e >II of the

Constitution?

@*)+ Setion '*a+ ,hih defines the e!tent and overage of anestra$ domains# and Setion '*b+

,hih# in turn# defines anestra$ $andsA

@*/+ Setion B# in re$ation to setion '*a+# ,hih provides that anestra$ domains in$uding

ina$ienab$e pub$i $ands# bodies of ,ater# minera$ and other resoures found ,ithin anestra$

domains are private but ommunit" propert" of the indigenous peop$esA

@*'+ Setion 8 in re$ation to setion '*a+ and '*b+ ,hih defines the omposition of anestra$domains and anestra$ $andsA

@*+ Setion ( ,hih reognizes and enumerates the rights of the indigenous peop$es over theanestra$ domainsA

*B+ Setion & ,hih reognizes and enumerates the rights of the indigenous peop$es over theanestra$ $andsA

@*8+ Setion B( ,hih provides for priorit" rights of the indigenous peop$es in the harvesting#

e!tration# deve$opment or e!p$oration of minera$s and other natura$ resoures ,ithin the areas

$aimed to be their anestra$ domains# and the right to enter into agreements ,ith nonindigenous peop$es for the deve$opment and uti$ization of natura$ resoures therein for a period not

e!eeding /B "ears# rene,ab$e for not more than /B "earsA and

@*(+ Setion B& ,hih gives the indigenous peop$es the responsibi$it" to maintain# deve$op#

protet and onserve the anestra$ domains and portions thereof ,hih are found to be neessar"for ritia$ ,atersheds# mangroves# ,i$d$ife santuaries# ,i$derness# proteted areas# forest over

or reforestation.@/

Petitioners a$so ontent that# b" providing for an a$$<enompassing definition of @anestra$

domains@ and @anestra$ $ands@ ,hih might even in$ude private $ands found ,ithin said areas#Setions '*a+ and '*b+ vio$ate the rights of private $ando,ners.'

In addition# petitioners 0uestion the provisions of the IPR% defining the po,ers and 9urisdition

of the NCIP and ma-ing ustomar" $a, app$iab$e to the sett$ement of disputes invo$vinganestra$ domains and anestra$ $ands on the ground that these provisions vio$ate the due proess$ause of the Constitution.

These provisions are?

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@*)+ setions B) to B' and B ,hih detai$ the proess of de$ineation and reognition of

anestra$ domains and ,hih vest on the NCIP the so$e authorit" to de$ineate anestra$

domains and anestra$ $andsA

@*/+ Setion B/Di ,hih provides that upon ertifiation b" the NCIP that a partiu$ar

area is an anestra$ domain and upon notifiation to the fo$$o,ing offiia$s# name$"# theSeretar" of Environment and Natura$ Resoures# Seretar" of Interior and Loa$

4overnments# Seretar" of 6ustie and Commissioner of the Nationa$ 1eve$opmentCorporation# the 9urisdition of said offiia$s over said area terminatesA

@*'+ Setion 8' ,hih provides the ustomar" $a,# traditions and praties of indigenous

peop$es sha$$ be app$ied first ,ith respet to propert" rights# $aims of o,nership#hereditar" suession and sett$ement of $and disputes# and that an" doubt or ambiguit" in

the interpretation thereof sha$$ be reso$ved in favor of the indigenous peop$esA

@*+ Setion 8B ,hih states that ustomar" $a,s and praties sha$$ be used to reso$ve

disputes invo$ving indigenous peop$esA and

@*B+ Setion 88 ,hih vests on the NCIP the 9urisdition over a$$ $aims and disputesinvo$ving rights of the indigenous peop$es.@B

7ina$$"# petitioners assai$ the va$idit" of Ru$e FII# Part II# Setion ) of the NCIP %dministrative

Order No. )# series of )&# ,hih provides that @the administrative re$ationship of the NCIP to

the Offie of the President is haraterized as a $atera$ but autonomous re$ationship for purposesof po$i" and program oordination.@ The" ontend that said Ru$e infringes upon the President=s

po,er of ontro$ over e!eutive departments under Setion )(# %rti$e FII of the Constitution.8

Petitioners pra" for the fo$$o,ing?

@*)+ % de$aration that Setions '# B# 8# (# &# B/DI# B(# B&# B# 8'# 8B and 88 and otherre$ated provisions of R.%. &'() are unonstitutiona$ and inva$idA

@*/+ The issuane of a ,rit of prohibition direting the Chairperson and Commissioners

of the NCIP to ease and desist from imp$ementing the assai$ed provisions of R.%. &'()

and its Imp$ementing Ru$esA

@*'+ The issuane of a ,rit of prohibition direting the Seretar" of the 1epartment ofEnvironment and Natura$ Resoures to ease and desist from imp$ementing 1epartment

of Environment and Natura$ Resoures Ciru$ar No. /# series of )&A

@*+ The issuane of a ,rit of prohibition direting the Seretar" of 2udget and3anagement to ease and desist from disbursing pub$i funds for the imp$ementation of

the assai$ed provisions of R.%. &'()A and

@*B+ The issuane of a ,rit of mandamus ommanding the Seretar" of Environment and

Natura$ Resoures to omp$" ,ith his dut" of arr"ing out the State=s onstitutiona$

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mandate to ontro$ and supervise the e!p$oration# deve$opment# uti$ization and

onservation of Phi$ippine natura$ resoures.@(

%fter due de$iberation on the petition# the members of the Court voted as fo$$o,s?

Seven *(+ voted to dismiss the petition. 6ustie Gapunan fi$ed an opinion# ,hih the Chief 6ustieand 6usties 2e$$osi$$o# Huisumbing# and Santiago 9oin# sustaining the va$idit" of the ha$$enged

provisions of R.%. &'(). 6ustie Puno a$so fi$ed a separate opinion sustaining a$$ ha$$enged

provisions of the $a, ,ith the e!eption of Setion )# Part II# Ru$e III of NCIP %dministrativeOrder No. )# series of )&# the Ru$es and Regu$ations Imp$ementing the IPR%# and Setion B(

of the IPR% ,hih he ontends shou$d be interpreted as dea$ing ,ith the $arge<sa$e e!p$oitation

of natura$ resoures and shou$d be read in on9untion ,ith Setion /# %rti$e >II of the )&(Constitution. On the other hand# 6ustie 3endoza voted to dismiss the petition so$e$" on the

ground that it does not raise a 9ustiiab$e ontrovers" and petitioners do not have standing to

0uestion the onstitutiona$it" of R.%. &'().

Seven *(+ other members of the Court voted to grant the petition. 6ustie Panganiban fi$ed aseparate opinion e!pressing the vie, that Setions ' *a+*b+# B# 8# ( *a+*b+# &# and re$ated

provisions of R.%. &'() are unonstitutiona$. :e reserves 9udgment on the onstitutiona$it" of

Setions B&# B# 8B# and 88 of the $a,# ,hih he be$ieves must a,ait the fi$ing of speifi ases

b" those ,hose rights ma" have been vio$ated b" the IPR%. 6ustie Fitug a$so fi$ed a separateopinion e!pressing the vie, that Setions '*a+# (# and B( of R.%. &'() are unonstitutiona$.

6usties 3e$o# Pardo# 2uena# 4onzaga<Re"es# and 1e Leon 9oin in the separate opinions of

6usties Panganiban and Fitug.

%s the votes ,ere e0ua$$" divided *( to (+ and the neessar" ma9orit" ,as not obtained# the ase

,as rede$iberated upon. :o,ever# after rede$iberation# the voting remained the same.

%ording$"# pursuant to Ru$e B8# Setion ( of the Ru$es of Civi$ Proedure# the petition is1IS3ISSE1.

%ttahed hereto and made integra$ parts thereof are the separate opinions of 6usties Puno# Fitug#

Gapunan# 3endoza# and Panganiban.

SO OR1ERE1.

1avide# 6r.# C.6.# 2e$$osi$$o# 3e$o# Huisumbing# Pardo# 2uena# 4onzaga<Re"es# nares<Santiago#

and 1e Leon# 6r.# 66.# onur.Puno# Fitug# Gapunan# 3endoza and Panganiban 66.# see separate opinion

#oonoe/

) Rollo# p. )).

/ Petition# Rollo# pp. )8</'.

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' Id . at /'</B.

Setion )# %rti$e III of the Constitution states? @No person sha$$ be deprived of $ife#

$ibert" or propert" ,ithout due proess of $a,# nor sha$$ an" person be denied the e0ua$ protetion of the $a,s.@

B Rollo# pp. /B</(.

8 Id . at /(</&.

( Transript of Stenographi Notes of the hearing he$d on %pri$ )'# )# pp. B<8.

The La,phi$ Pro9et < %re$$ano La, 7oundation

SEARA!E OINION

UNO, J .

PRECIS

% $assi essa" on the 79 o /or ,as ,ritten in )&( b" 7riedrih Nietzshe entit$ed @On

the Uses and 1isadvantages of :istor" for Life.@ E!pounding on NietzsheJs essa"# 6udge

Rihard Posner ) ,rote?/

@La, is the most historia$$" oriented# or if "ou $i-e the most ba-,ard<$oo-ing# the most Jpast<dependent#J of the professions. It venerates tradition# preedent# pedigree# ritua$# ustom# anient

praties# anient te!ts# arhai termino$og"# maturit"# ,isdom# seniorit"# gerontora"# and

interpretation oneived of as a method of reovering histor". It is suspiious of innovation#disontinuities# Jparadigm shifts#J and the energ" and brashness of "outh. These ingrained

attitudes are obsta$es to an"one ,ho ,ants to re<orient $a, in a more pragmati diretion. 2ut#

b" the same to-en# ra:mac ;7r/r7dence m7/ come o erm/ < /or.=

Khen Congress enated the Ind:eno7/ eo9e/ R:/ Ac *IPR%+# it introdued radca9 onepts into the Phi$ippine $ega$ s"stem ,hih appear to o$$ide ,ith sett$ed onstitutiona$ and

9ura$ preepts on state o,nership of $and and other natura$ resoures. The sense and subt$eties of

this $a, annot be appreiated ,ithout onsidering its distint soio$og" and the $ab"rinths of itshistor". This Opinion attempts to interpret IPR% b" disovering its sou$ shrouded b" the mist ofour histor". %fter a$$# the IPR% ,as enated b" Congress not on$" to fu$fi$$ the onstitutiona$

mandate of proteting the indigenous u$tura$ ommunitiesJ right to their anestra$ $and but more

important$"# o correc a :ra>e /orca9 n;7/ce o o7r nd:eno7/ eo9e.

This Opinion disusses the fo$$o,ing?

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I. The 1eve$opment of the Rega$ian 1otrine in the Phi$ippine Lega$ S"stem.

%. The La,s of the Indies

2. Fa$enton v. 3uriano

C. The Pub$i Land %ts and the Torrens S"stem

1. The Phi$ippine Constitutions

II. The Indigenous Peop$es Rights %t *IPR%+.

%. Indigenous Peop$es

). Indigenous Peop$es? Their :istor"

/. Their Conept of Land

III. The IPR% is a Nove$ Piee of Legis$ation.

%. Legis$ative :istor"

IF. The Provisions of the IPR% 1o Not Contravene the Constitution.

%. %nestra$ domains and anestra$ $ands are the private propert" of indigenous peop$esand do not onstitute part of the $and of the pub$i domain.

). The right to anestra$ domains and anestra$ $ands? ho, a0uired

/. The onept of native tit$e

*a+ Cario v. Insu$ar 4overnment

*b+ Indian Tit$e to $and

*+ Kh" the Cario dotrine is uni0ue

'. The option of seuring a torrens tit$e to the anestra$ $and

2. The right of o,nership and possession b" the ICCs;IPs to their anestra$ domains is a

$imited form of o,nership and does not in$ude the right to a$ienate the same.

). The indigenous onept of o,nership and ustomar" $a,

C. Setions ( *a+# ( *b+ and B( of the IPR% do not vio$ate the Rega$ian 1otrine enshrinedin Setion /# %rti$e >II of the )&( Constitution.

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). The rights of ICCs;IPs over their anestra$ domains and $ands

/. The right of ICCs;IPs to deve$op $ands and natura$ resoures ,ithin the

anestra$ domains does not deprive the State of o,nership over the natura$resoures# ontro$ and supervision in their deve$opment and e!p$oitation.

*a+ Setion )# Part II# Ru$e III of the Imp$ementing Ru$es goes be"ond the

parameters of Setion (*a+ of the $a, on o,nership of anestra$ domains

and is ultra vires.

*b+ The sma$$<sa$e uti$ization of natura$ resoures in Setion ( *b+ of theIPR% is a$$o,ed under Paragraph '# Setion /# %rti$e >II of the )&(

Consitution.

*+ The $arge<sa$e uti$ization of natura$ resoures in Setion B( of the

IPR% ma" be harmonized ,ith Paragraphs ) and # Setion /# %rti$e >II

of the )&( Constitution.

F. The IPR% is a Reognition of Our %tive Partiipation in the Internationa$ Indigenous

3ovement.

1ISCUSSION

I. T:E 1EFELOP3ENT O7 T:E RE4%LI%N 1OCTRINE IN T:E P:ILIPPINE LE4%LSSTE3.

A. !e &a</ o e Inde/

The apait" of the State to o,n or a0uire propert" is the stateJs po,er of dominium.' This ,as

the foundation for the ear$" Spanish derees embraing the feuda$ theor" of jura regalia. The@Rega$ian 1otrine@ or jura regalia is a Kestern $ega$ onept that ,as r/ nrod7ced b e

Sanard/ no e co7nr ro7: e &a</ o e Inde/ and e Roa9 Ced79a/. The

La,s of the Indies# i.e.# more speifia$$"# Law 14, Title 12, Book 4 of the Novisia Re!opila!ionde Le"es de las Indias# set the po$i" of the Spanish Cro,n ,ith respet to the Phi$ippine Is$ands

in the fo$$o,ing manner?

@Ke# having a0uired fu$$ sovereignt" over the Indies# and a$$ $ands# territories# and possessions

not heretofore eded a,a" b" our ro"a$ predeessors# or b" us# or in our name# sti$$ pertaining to

the ro"a$ ro,n and patrimon"# it is our ,i$$ that a$$ $ands ,hih are he$d ,ithout proper and truedeeds of grant be restored to us as the" be$ong to us# in order that after reserving before a$$ ,hat

to us or to our viero"s# audienias# and governors ma" seem neessar" for pub$i s0uares# ,a"s# pastures# and ommons in those p$aes ,hih are peop$ed# ta-ing into onsideration not on$"

their present ondition# but a$so their future and their probab$e inrease# and after distributing to

the natives ,hat ma" be neessar" for ti$$age and pasturage# onfirming them in ,hat the" no,

have and giving them more if neessar"# a$$ the rest of said $ands ma" remain free andunenumbered for us to dispose of as ,e ma" ,ish.

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Ke therefore order and ommand that a$$ viero"s and presidents of pretoria$ ourts designate at

suh time as sha$$ to them seem most e!pedient# a suitab$e period ,ithin ,hih a$$ possessors of

trats# farms# p$antations# and estates sha$$ e!hibit to them and to the ourt offiers appointed b"them for this purpose# their tit$e deeds thereto. %nd those ,ho are in possession b" virtue of

proper deeds and reeipts# or b" virtue of 9ust presriptive right sha$$ be proteted# and a$$ the rest

sha$$ be restored to us to be disposed of at our ,i$$.@

The Phi$ippines passed to Spain b" virtue of @disover"@ and on0uest. Conse0uent$"# a$$ $ands beame the e!$usive patrimon" and dominion of the Spanish Cro,n. The Spanish 4overnment

too- harge of distributing the $ands b" issuing ro"a$ grants and onessions to Spaniards# both

mi$itar" and ivi$ian.B Private $and tit$es ou$d on$" be a0uired from the government either b" purhase or b" the various modes of $and grant from the Cro,n.8

The La,s of the Indies ,ere fo$$o,ed b" the Ley Hipotecaria# or e %or:a:e &a< o 18?3.(

The Spanish 3ortgage La, provided for the s"stemati registration of tit$es and deeds as ,e$$ as

possessor" $aims. The $a, sought to register and ta! $ands pursuant to the Ro"a$ 1eree of

)&&5. The Ro"a$ 1eree of )&# or the @3aura La,#@ ,as part$" an amendment of the 3ortgageLa, as ,e$$ as the La,s of the Indies# as a$read" amended b" previous orders and derees.& This

,as the $ast Spanish $and $a, promu$gated in the Phi$ippines. It re0uired the @ad9ustment@ orregistration of a$$ agriu$tura$ $ands# other,ise the $ands sha$$ revert to the state.

7our "ears $ater# b" the !rea o ar/ o December 10, 18?8# Spain eded to the government

of the United States a$$ rights# interests and $aims over the nationa$ territor" of the Phi$ippine

Is$ands. In )5'# the United States o$onia$ government# through the Phi$ippine Commission# passed Ac No. ?26, e r/ 7b9c &and Ac.

'. $a9enon >. %7rcano

In )5# under the %merian regime# this Court deided the ase of Valenton v. Murciano.

Valenton reso$ved the 0uestion of ,hih is the better basis for o,nership of $and? $ong<time

oupation or paper tit$e. P$aintiffs had entered into peaefu$ oupation of the sub9et $and in)&85. 1efendantJs predeessor<in<interest# on the other hand# purhased the $and from the

provinia$ treasurer of Tar$a in )&/. The $o,er ourt ru$ed against the p$aintiffs on the ground

that the" had $ost a$$ rights to the $and b" not ob9eting to the administrative sa$e. P$aintiffsappea$ed the 9udgment# asserting that their '5<"ear adverse possession# as an e!traordinar"

period of presription in the Partidas and the Civi$ Code# had given them tit$e to the $and as

against ever"one# in$uding the StateA and that the State# not o,ning the $and# ou$d not va$id$"

transmit it.

The Court# spea-ing through 6ustie Ki$$ard# deided the ase on the basis of @those speia$ $a,s

,hih from ear$iest time have regu$ated the disposition of the pub$i $ands in the o$onies.@)5 The

0uestion posed b" the Court ,as? @1id these speia$ $a,s reognize an" right of presription asagainst the State as to these $andsA and if so# to ,hat e!tent ,as it reognizedM@

of 51




















Prior to )&&5# the Court said# there ,ere no $a,s speifia$$" providing for the disposition of $and

in the Phi$ippines. :o,ever# it ,as understood that in the absene of an" speia$ $a, to govern a

speifi o$on"# the La,s of the Indies ,ou$d be fo$$o,ed. Indeed# in the Ro"a$ Order of 6u$" B#)&8/# it ,as dereed that unti$ regu$ations on the sub9et ou$d be prepared# the authorities of the

Phi$ippine Is$ands shou$d fo$$o, strit$" the La,s of the Indies# the rdenan!a of the

Intendentes of )(&8# and the Ro"a$ Cedu$a of )(B.))

Huoting the preamb$e of La, )# Tit$e )/# 2oo- of the Recopilacion de Leyes de las Indias#the ourt interpreted it as fo$$o,s?

@In the preamb$e of this $a, there is# as is seen# a distint statement that a$$ those $ands be$ong to

the Cro,n ,hih have not been granted b" Phi$ip# or in his name# or b" the -ings ,ho preededhim. !/ /aemen e@c97de/ e dea a ere m: be 9and/ no /o :raned, a dd no

be9on: o e n:. I e@c97de/ e dea a e n: <a/ no /99 e o<ner o a99 7n:raned

9and/# beause some private person had been in the adverse oupation of them. 2" the

mandator" part of the $a, a$$ the oupants of the pub$i $ands are re0uired to produe before the

authorities named# and ,ithin a time to be fi!ed b" them# their tit$e papers. %nd those ,ho hadgood tit$e or sho,ed presription ,ere to be proteted in their ho$dings. It is apparent that it ,as

not the intention of the $a, that mere possession for a $ength of time shou$d ma-e the possessorsthe o,ners of the $and possessed b" them ,ithout an" ation on the part of the authorities.@)/

The preamb$e stated that a$$ those $ands ,hih had not been granted b" Phi$ip# or in his name# or

b" the -ings ,ho preeded him# be$onged to the Cro,n.)' 7or those $ands granted b" the -ing#

the deree provided for a s"stem of assignment of suh $ands. It a$so ordered that a$$ possessorsof agriu$tura$ $and shou$d e!hibit their tit$e deed# other,ise# the $and ,ou$d be restored to the

Cro,n.)

The Ro"a$ Cedu$a of Otober )B# )(B reinfored the Recopilacion ,hen it ordered the Cro,nJs prinipa$ subde$egate to issue a genera$ order direting the pub$iation of the Cro,nJsinstrutions?

@! ! ! to the end that an" and a$$ persons ,ho# sine the "ear )(55# and up to the date of the

promu$gation and pub$iation of said order# sha$$ have oupied ro"a$ $ands# ,hether or not ! ! !

u$tivated or tenanted# ma" ! ! ! appear and e!hibit to said subde$egates the tit$es and patents b"virtue of ,hih said $ands are oupied. ! ! !. Said subde$egates ,i$$ at the same time ,arn the

parties interested that in ase of their fai$ure to present their tit$e deeds ,ithin the term

designated# ,ithout a 9ust and va$id reason therefor# the" ,i$$ be deprived of and evited fromtheir $ands# and the" ,i$$ be granted to others.@)B

On 6une /B# )&&5# the Cro,n adopted regu$ations for the ad9ustment of $ands @,rongfu$$"

oupied@ b" private individua$s in the Phi$ippine Is$ands. Valenton onstrued these regu$ations

together ,ith ontemporaneous $egis$ative and e!eutive interpretations of the $a,# andon$uded that p$aintiffsJ ase fared no better under the )&&5 deree and other $a,s ,hih

fo$$o,ed it# than it did under the ear$ier ones. Thus as a genera$ dotrine# the Court stated?

of 51













@Khi$e the State has a$,a"s reognized the right of the oupant to a deed if he proves a

possession for a suffiient $ength of time# "et it a/ a9<a/ n//ed a e m7/ mae a

roo beore e roer admn/ra>e ocer/, and oban rom em / deed, and 7n9

e dd a e Sae remaned e ab/o97e o<ner.@)8

In on$usion# the Court ru$ed? @Ke ho$d that from )&85 to )&/ there ,as no $a, in fore inthese Is$ands b" ,hih the p$aintiffs ou$d obtain the o,nership of these $ands b" presription#

,ithout an" ation b" the State.@)( Fa$enton had no rights other than those ,hih arued to mere possession. 3uriano# on the other hand# ,as deemed to be the o,ner of the $and b" virtue of the

grant b" the provinia$ seretar". In effet# Fa$enton uphe$d the Spanish onept of state

o,nership of pub$i $and.

%s a fitting observation# the Court added that =Be o9c 7r/7ed b e San/

Go>ernmen rom ear9e/ me/, re7rn: /e9er/ on e 7b9c 9and/ o oban 9e deed/

ereor rom e Sae, a/ been conn7ed b e Amercan Go>ernmen n Ac No. ?26.@)&

C. !e 7b9c &and Ac/ and e !orren/ S/em

Ac No. ?26# the first Pub$i Land %t# ,as passed in pursuane of the provisions of the thePhi$ippine 2i$$ of )5/. The $a, governed the disposition of $ands of the pub$i domain. It

presribed ru$es and regu$ations for the homesteading# se$$ing# and $easing of portions of the

pub$i domain of the Phi$ippine Is$ands# and presribed the terms and onditions to enab$e persons to perfet their tit$es to pub$i $ands in the Is$ands. It a$so provided for the @issuane of

patents to ertain native sett$ers upon pub$i $ands#@ for the estab$ishment of to,n sites and sa$e

of $ots therein# for the omp$etion of imperfet tit$es# and for the ane$$ation or onfirmation ofSpanish onessions and grants in the Is$ands.@ In short# the Pub$i Land %t operated on the

assumption that tit$e to pub$i $ands in the Phi$ippine Is$ands remained in the governmentA) and

that the governmentJs tit$e to pub$i $and sprung from the Treat" of Paris and other subse0uenttreaties bet,een Spain and the United States./5 The term @pub$i $and@ referred to a$$ $ands of the pub$i domain ,hose tit$e sti$$ remained in the government and are thro,n open to private

appropriation and sett$ement#/) and e!$uded the patrimonia$ propert" of the government and the

friar $ands.//

Ac No. ?26 <a/ /7er/eded n 1?1? b Ac 28F, e /econd 7b9c &and Ac. This ne, $a,,as passed under the 6ones La,. It ,as more omprehensive in sope but $imited the

e!p$oitation of agriu$tura$ $ands to 7i$ipinos and %merians and itizens of other ountries

,hih gave 7i$ipinos the same privi$eges./' %fter the passage of the )'B Constitution# %t /&(,as amended in )'8 b" Common<ea9 Ac No. 1F1. Common,ea$th %t No. )) remains

the present Pub$i Land La, and it is essentia$$" the same as %t /&(. The main differene

bet,een the t,o re$ates to the transitor" provisions on the rights of %merian itizens andorporations during the Common,ea$th period at par ,ith 7i$ipino itizens and orporations. /

Gran/ o 7b9c 9and <ere bro7: 7nder e oeraon o e !orren/ //em 7nder Ac

F?6, or e &and Re:/raon &a< o 1?03. Enated b" the Phi$ippine Commission# %t 8

p$aed a$$ pub$i and private $ands in the Phi$ippines under the Torrens s"stem. The $a, is said to be a$most a verbatim op" of the 3assahussetts Land Registration %t of )&&#/B ,hih# in turn#

of 51


























fo$$o,ed the prinip$es and proedure of the Torrens s"stem of registration formu$ated b" Sir

Robert Torrens ,ho patterned it after the 3erhant Shipping %ts in South %ustra$ia. The

Torrens s"stem re0uires that the government issue an offiia$ ertifiate of tit$e attesting to thefat that the person named is the o,ner of the propert" desribed therein# sub9et to suh $iens

and enumbranes as thereon noted or the $a, ,arrants or reserves./8 The ertifiate of tit$e is

indefeasib$e and impresriptib$e and a$$ $aims to the pare$ of $and are 0uieted upon issuane ofsaid ertifiate. This s"stem high$" fai$itates $and onve"ane and negotiation./(

D. !e 9ne Con/7on/

The Rega$ian dotrine ,as enshrined in the 1?35 Con/7on. One of the fi!ed and dominating

ob9etives of the )'B Constitutiona$ Convention ,as the nationa$ization and onservation of thenatura$ resoures of the ountr"./& !ere <a/ an o>er<e9mn: /enmen n e Con>enon

n a>or o e rnc9e o /ae o<ner/ o na7ra9 re/o7rce/ and e adoon o e

Re:a9an docrne./ State o,nership of natura$ resoures ,as seen as a neessar" starting point

to seure reognition of the stateJs po,er to ontro$ their disposition# e!p$oitation# deve$opment#

or uti$ization.

'5

The de$egates to the Constitutiona$ Convention ver" ,e$$ -ne, that the oneptof State o,nership of $and and natura$ resoures ,as introdued b" the Spaniards# ho,ever# the"

,ere not ertain ,hether it ,as ontinued and app$ied b" the %merians. To remove a$$ doubts#the Convention approved the provision in the Constitution affirming the Rega$ian dotrine.')

Thus# the 1?35 Con/7on# in Setion ) of %rti$e >III on @Conservation and Uti$ization of

Natura$ Resoures#@ reads as fo$$o,s?

@#e!. 1. A99 a:rc797ra9, mber, and mnera9 9and/ o e 7b9c doman, <aer/, mnera9/,

coa9, ero9e7m, and oer mnera9 o9/, a99 orce/ o oena9 ener:, and oer na7ra9

re/o7rce/ o e 9ne/ be9on: o e Sae, and er d/o/on, e@9oaon,

de>e9omen, or 79aon /a99 be 9med o cen/ o e 9ne/, or o cororaon/or a//ocaon/ a 9ea/ /@ er cen7m o e caa9 o <c / o<ned b /7c cen/,

/7b;ec o an e@/n: r:, :ran, 9ea/e, or conce//on a e me o e na7:7raon o

e Go>ernmen e/ab9/ed 7nder / Con/7on. Na7ra9 re/o7rce/, < e e@ceon

o 7b9c a:rc797ra9 9and, /a99 no be a9enaed, and no $iense# onession# or $ease for thee!p$oitation# deve$opment# or uti$ization of an" of the natura$ resoures sha$$ be granted for a

period e!eeding t,ent"<five "ears# e!ept as to ,ater rights for irrigation# ,ater supp$"#

fisheries# or industria$ uses other than the deve$opment of ,ater po,er# in ,hih ases benefiia$use ma" be the measure and the $imit of the grant.@

The 1?3 Con/7on reiterated the Rega$ian dotrine in Setion &# %rti$e >IF on the

@Nationa$ Eonom" and the Patrimon" of the Nation#@ to ,it?

@#e!. $. A99 9and/ o e 7b9c doman, <aer/, mnera9/, coa9, ero9e7m and oer mnera9

o9/, a99 orce/ o oena9 ener:, /ere/, <9d9e, and oer na7ra9 re/o7rce/ o e

9ne/ be9on: o e Sae. * e e@ceon o a:rc797ra9, nd7/ra9 or

commerca9, re/dena9, and re/e9emen 9and/ o e 7b9c doman, na7ra9 re/o7rce/

/a99 no be a9enaed, and no 9cen/e, conce//on, or 9ea/e or e e@9oraon, de>e9omen,

e@9oaon, or 79aon o an o e na7ra9 re/o7rce/ /a99 be :raned or a erod

of 51















e@ceedn: <en>e ear/, rene<ab9e or no more an <en>e ear/, e!ept as to

,ater rights for irrigation# ,ater supp$"# fisheries# or industria$ uses other than the deve$opment

of ,ater po,er# in ,hih ases benefiia$ use ma" be the measure and the $imit of the grant.@

The 1?8 Con/7on reaffirmed the Rega$ian dotrine in Setion / of %rti$e >II on @Nationa$

Eonom" and Patrimon"#@ to ,it?

@#e!. 2. A99 9and/ o e 7b9c doman, <aer/, mnera9/, coa9, ero9e7m, and oer

mnera9 o9/, a99 orce/ o oena9 ener:, /ere/, ore// or mber, <9d9e, 9ora and

a7na, and oer na7ra9 re/o7rce/ are o<ned b e Sae. * e e@ceon o

a:rc797ra9 9and/, a99 oer na7ra9 re/o7rce/ /a99 no be a9enaed. !e e@9oraon,

de>e9omen and 79aon o na7ra9 re/o7rce/ /a99 be 7nder e 799 conro9 and

/7er>/on o e Sae. !e Sae ma drec9 7nderae /7c ac>e/ or ma ener

no corod7con, ;on >en7re, or rod7con/arn: a:reemen/ < #9no cen/,

or cororaon/ or a//ocaon/ a 9ea/ /@ er cen7m o <o/e caa9 / o<ned b /7c

cen/. Suh agreements ma" be for a period not e!eeding t,ent"<five "ears# rene,ab$e for

not more than t,ent"<five "ears# and under suh terms and onditions as ma" be provided b"$a,. In ases of ,ater rights for irrigation# ,ater supp$"# fisheries# or industria$ uses other than

the deve$opment of ,ater po,er# benefiia$ use ma" be the measure and $imit of the grant.

! ! !.@

Simp$" stated# a$$ 9and/ o e 7b9c doman a/ <e99 a/ a99 na7ra9 re/o7rce/ enumerated

therein# ,hether on pub$i or private $and# be$ong to the State. I / / conce o Sae

o<ner/ a eoner/ c9am / ben: >o9aed b e IRA.

II. !(E INDIGENOUS EO&ES RIG(!S AC!.

Re7b9c Ac No. 831 is entit$ed @%n %t to Reognize# Protet and Promote the Rights ofIndigenous Cu$tura$ Communities; Indigenous Peop$es# Creating a Nationa$ Commission on

Indigenous Peop$es# Estab$ishing Imp$ementing 3ehanisms# %ppropriating 7unds Therefor# and

for Other Purposes.@ I / /m9 no<n a/ =!e Ind:eno7/ eo9e/ R:/ Ac o 1??= or

e IRA.

The IPR% reognizes the e!istene of the indigenous u$tura$ ommunities or nd:eno7/

eo9e/ *ICCs;IPs+ as a distint setor in Phi$ippine soiet". I :ran/ e/e eo9e e

o<ner/ and o//e//on o er ance/ra9 doman/ and ance/ra9 9and/, and dene/ e

e@en o e/e 9and/ and doman/. !e o<ner/ :>en / e nd:eno7/ conce o

o<ner/ 7nder c7/omar 9a< <c race/ / or:n o na>e 9e.

Other rights are a$so granted the ICCs;IPs# and these are?

< the right to deve$op $ands and natura$ resouresA

< the right to sta" in the territoriesA

of 51



< the right in ase of disp$aementA

< the right to safe and $ean air and ,aterA

< the right to $aim parts of reservationsA

< the right to reso$ve onf$itA'/

< the right to anestra$ $ands ,hih in$ude

a. the right to transfer $and;propert" to;among members of the same ICCs;IPs#sub9et to ustomar" $a,s and traditions of the ommunit" onernedA

b. the right to redemption for a period not e!eeding )B "ears from date of

transfer# if the transfer is to a non<member of the ICC;IP and is tainted b" vitiatedonsent of the ICC;IP# or if the transfer is for an unonsionab$e onsideration.''

Kithin their anestra$ domains and anestra$ $ands# the ICCs;IPs are given the right to se$f<

governane and empo,erment#' soia$ 9ustie and human rights#'B the right to preserve and

protet their u$ture# traditions# institutions and ommunit" inte$$etua$ rights# and the right todeve$op their o,n sienes and tehno$ogies.'8

To arr" out the po$iies of the %t# the $a, reated the Nationa$ Commission on Indigenous

Peop$es *NCIP+. The NCIP is an independent agen" under the Offie of the President and is

omposed of seven *(+ Commissioners be$onging to ICCs;IPs from eah of the ethnographiareas< Region I and the Cordi$$erasA Region IIA the rest of LuzonA Is$and groups in$uding

3indoro# Pa$a,an# Romb$on# Pana" and the rest of the Fisa"asA Northern and Kestern

3indanaoA Southern and Eastern 3indanaoA and Centra$ 3indanao.

'(

The NCIP too- over thefuntions of the Offie for Northern Cu$tura$ Communities and the Offie for Southern Cu$tura$

Communities reated b" former President Corazon %0uino ,hih ,ere merged under a

revita$ized struture.'&

D/7e/ n>o9>n: ICC/HI/ are o be re/o9>ed 7nder c7/omar 9a</ and racce/. Khensti$$ unreso$ved# the matter ma" be brought to the NCIP# ,hih is granted 0uasi<9udiia$ po,ers.'

The NCIPJs deisions ma" be appea$ed to the Court of %ppea$s b" a petition for revie,.

%n" person ,ho vio$ates an" of the provisions of the %t suh as# but not $imited to#

unauthorized and;or un$a,fu$ intrusion upon anestra$ $ands and domains sha$$ be punished in

aordane ,ith ustomar" $a,s or imprisoned from months to )/ "ears and;or fined fromP)55#555.55 to PB55#555.55 and ob$iged to pa" damages.5

A. Ind:eno7/ eo9e/

The IPR% is a $a, dea$ing ,ith a speifi group of peop$e# i.e.# the Indigenous Cu$tura$Communities *ICCs+ or the Indigenous Peop$es *IPs+. The term @ICCs@ is used in the )&(

Constitution ,hi$e that of @IPs@ is the ontemporar" internationa$ $anguage in the Internationa$

of 51

























Labor Organization *ILO+ Convention )8) and the United Nations *UN+ 1raft 1e$aration on

the Rights of Indigenous Peop$es./

ICCs"IPs are defined b" the IPR% as?

@#e!. % &h'. Indigenous (ultural (ounities) Indigenous *eoples< refer to a group of peop$e orhomogeneous soieties identified b" se$f<asription and asription b" others# ,ho have

ontinuous$" $ived as organized ommunit" on ommuna$$" bounded and defined territor"# and

,ho have# under $aims of o,nership sine time immemoria$# oupied# possessed and uti$izedsuh territories# sharing ommon bonds of $anguage# ustoms# traditions and other distintive

u$tura$ traits# or ,ho have# through resistane to po$itia$# soia$ and u$tura$ inroads of

o$onization# non<indigenous re$igions and u$tures# beame historia$$" differentiated from thema9orit" of 7i$ipinos. ICCs;IPs sha$$ $i-e,ise in$ude peop$es ,ho are regarded as indigenous on

aount of their desent from the popu$ations ,hih inhabited the ountr"# at the time of

on0uest or o$onization# or at the time of inroads of non<indigenous re$igions and u$tures# or

the estab$ishment of present state boundaries# ,ho retain some or a$$ of their o,n soia$#

eonomi# u$tura$ and po$itia$ institutions# but ,ho ma" have been disp$aed from theirtraditiona$ domains or ,ho ma" have resett$ed outside their anestra$ domains.@

Ind:eno7/ C797ra9 Comm7ne/ or Ind:eno7/ eo9e/ reer o a :ro7 o eo9e or

omo:eneo7/ /ocee/ <o a>e conn7o7/9 9>ed a/ an or:aned comm7n on

comm7na99 bo7nded and dened error. These groups of peop$e have atua$$" oupied#

possessed and uti$ized their territories under $aim of o,nership sine time immemoria$. The"

share ommon bonds of $anguage# ustoms# traditions and other distintive u$tura$ traits# or#the"# b" their resistane to po$itia$# soia$ and u$tura$ inroads of o$onization# non<indigenous

re$igions and u$tures# beame historia$$" differentiated from the 7i$ipino ma9orit". ICCs;IPs

a$so in$ude desendants of ICCs;IPs ,ho inhabited the ountr" at the time of on0uest or

o$onization# ,ho retain some or a$$ of their o,n soia$# eonomi# u$tura$ and po$itia$institutions but ,ho ma" have been disp$aed from their traditiona$ territories or ,ho ma" have

resett$ed outside their anestra$ domains.

1. Ind:eno7/ eo9e/ !er (/or

Present$"# Phi$ippine indigenous peop$es inhabit the interiors and mountains of Luzon#3indanao# 3indoro# Negros# Samar# Le"te# and the Pa$a,an and Su$u group of is$ands. The" are

omposed of ))5 tribes and are as fo$$o,s?

). In the Cordi$$era %utonomous Region< Gan-ane"# Iba$oi# 2onto# Tinggian or Itneg#

Ifugao# Ga$inga# apa"ao# %eta or %gta or Pugot# and 2ago of I$oos Norte andPangasinanA Ibanag of Isabe$a# Caga"anA I$ongot of Huirino and Nueva Fiza"aA 4addang

of Huirino# Nueva Fiza"a# Ita,is of Caga"anA Ivatan of 2atanes# %eta of Caga"an#

Huirino and Isabe$a.

/. In Region III< %etas.

of 51







'. In Region IF< 1umagats of %urora# Riza$A Remontado of %urora# Riza$# HuezonA

%$angan or 3ang"an# 2atangan# 2uid or 2uhid# :anunuo and Ira"a of Orienta$ and

Oidenta$ 3indoroA Tad"a,an of Oidenta$ 3indoroA Cu"onon# Pa$a,anon# Tagbanuaand TaoJt bato of Pa$a,an.

. In Region F< %eta of Camarines Norte and Camarines SurA %eta<%bi"an# Isarog# andGabihug of Camarines NorteA %gta# and 3a"on of Camarines SurA Itom of %$ba"#

Cimaron of SorsogonA and the Pu$$on of 3asbate and Camarines Sur.

B. In Region FI< %ti of Negros Oidenta$# I$oi$o and %nti0ue# CapizA the 3agahat of

Negros Oidenta$A the Coro$ano and Su$od.

8. In Region FII< 3agahat of Negros Orienta$ and Es-a"a of 2oho$.

(. In Region I>< the 2ad9ao numbering about )/#555 in Ta,i<Ta,i# amboanga de$ SurA

the Ga$ibugan of 2asi$an# the Sama$# Subanon and a-at.

&. Region >< Numbering ).8 mi$$ion in Region > a$one# the IPs are? the 2an,aon#

2u-idnon# 3atigsa$og# Ta$aanding of 2u-idnonA the Camiguin of Camiguin Is$andA the

:iga<unon of %gusan de$ Norte# %gusan de$ Sur# 2u-idnon and 3isamis Oidenta$A theTig,ahanon of %gusan de$ Sur# 3isamis Orienta$ and and 3isamis Oidenta$# the

3anobo of the %gusan provines# and the Uma"amnon of %gusan and 2u-idnon.

. In Region >I< There are about )#((#58B IPs in Region >I. The" are tribes of the

1ibabaon# 3ansa-a of 1avao de$ NorteA 2J$aan# Ga$agan# Langi$ad# TJbo$i and Ta$aingodof 1avao de$ SurA 3amamanua of Surigao de$ SurA 3anda"a of the Surigao provines

and 1avao Orienta$A 3anobo 2$it of South CotabatoA the 3angguangon of 1avao and

South CotabatoA 3atigsa$og of 1avao de$ Norte and 1e$ SurA Taga-ao$o# Tasada" andUbo of South CotabatoA and 2agobo of 1avao de$ sur and South Cotabato.

)5. In Region >II< I$ianen# Tirura"# 3aguindanao# 3aranao# Tausug# a-an;Sama$# and

Iranon.'

(o< e/e nd:eno7/ eo9e/ came o 9>e n e 9ne/ :oe/ bac o a/ ear9 a/ 25,000

o 30,000 '.C.

'eore e me o *e/ern conac, the Phi$ippine arhipe$ago ,as peop$ed $arge$" b" the Negritos# Indonesians and 3a$a"s. The strains from these groups eventua$$" gave rise to

ommon u$tura$ features ,hih beame the dominant inf$uene in ethni reformu$ation in thearhipe$ago. Inf$uenes from the Chinese and Indian ivi$izations in the third or fourth mi$$enium2.C. augmented these ethni strains. Chinese eonomi and soio<u$tura$ inf$uenes ame b"

,a" of Chinese pore$ain# si$- and traders. Indian inf$uene found their ,a" into the re$igious<

u$tura$ aspet of pre<o$onia$ soiet".B

The ancen #9no/ sett$ed beside bodies of ,ater. :unting and food gathering beamesupp$ementar" ativities as re$iane on them ,as redued b" fishing and the u$tivation of the

of 51










soi$.8 7rom the hinter$and# oasta$# and riverine ommunities# our anestors evo$ved an

essentia$$" homogeneous u$ture# a basia$$" ommon <a o 9e <ere na7re <a/ a rmar

acor. Communit" $ife throughout the arhipe$ago ,as inf$uened b"# and responded to#ommon eo$og". The genera$$" benign tropia$ $imate and the $arge$" uniform f$ora and fauna

favored simi$arities# not differenes.( Life ,as essentia$$" subsistene but not harsh.&

The ear9 #9no/ had a u$ture that ,as basia$$" 3a$a"an in struture and form. The" had

$anguages that traed their origin to the %ustronesian parent<sto- and used them not on$" asmedia of dai$" ommuniation but a$so as vehi$es for the e!pression of their $iterar" moods.

The" fashioned onepts and be$iefs about the ,or$d that the" ou$d not see# but ,hih the"

sensed to be part of their $ives.B5 The" had their o,n re$igion and re$igious be$iefs. The" be$ievedin the immorta$it" of the sou$ and $ife after death. Their ritua$s ,ere based on be$iefs in a ran-ing

deit" ,hom the" a$$ed 2atha$ang 3a"-apa$# and a host of other deities# in the environmenta$

spirits and in sou$ spirits. The ear$" 7i$ipinos adored the sun# the moon# the anima$s and birds# for the" seemed to onsider the ob9ets of Nature as something to be respeted. The" venerated

a$most an" ob9et that ,as $ose to their dai$" $ife# indiating the importane of the re$ationship

bet,een man and the ob9et of nature.

B)

The unit of government ,as the @baranga"#@ a term that derived its meaning from the 3a$a",ord @ba$anga"#@ meaning# a boat# ,hih transported them to these shores.B/ The baranga" ,as

basia$$" a fami$"<based ommunit" and onsisted of thirt" to one hundred fami$ies. Eah

baranga" ,as different and ru$ed b" a hieftain a$$ed a @dato.@ It ,as the hieftainJs dut" to ru$eand govern his sub9ets and promote their ,e$fare and interests. % hieftain had ,ide po,ers for

he e!erised a$$ the funtions of government. :e ,as the e!eutive# $egis$ator and 9udge and ,as

the supreme ommander in time of ,ar.B'

&a</ <ere eer c7/omar or <ren. C7/omar 9a</ <ere anded do<n ora99 rom

:eneraon o :eneraon and con/7ed e b79 o e 9a</ o e baran:a. The" ,ere preserved in songs and hants and in the memor" of the e$der persons in the ommunit".B The

,ritten $a,s ,ere those that the hieftain and his e$ders promu$gated from time to time as theneessit" arose.BB The o$dest -no,n ,ritten bod" of $a,s ,as the 3aragtas Code b" 1atu

Suma-,e$ at about )/B5 %.1. Other o$d odes are the 3us$im Code of Lu,aran and the

Prinipa$ Code of Su$u.B8 Khether ustomar" or ,ritten# the $a,s dea$t ,ith various sub9ets#

suh as inheritane# divore# usur"# $oans# partnership# rime and punishment# propert" rights#fami$" re$ations and adoption. Khenever disputes arose# these ,ere deided peaefu$$" through a

ourt omposed b" the hieftain as @9udge@ and the baranga" e$ders as @9ur".@ Conf$its arising

bet,een sub9ets of different baranga"s ,ere reso$ved b" arbitration in ,hih a board omposedof e$ders from neutra$ baranga"s ated as arbiters.B(

'aran:anc /oce ad a d/n:7/n: ea7re e ab/ence o r>ae roer n 9and.

The hiefs mere$" administered the $ands in the name of the baranga". The soia$ order ,as an

e!tension of the fami$" ,ith hiefs embod"ing the higher unit" of the ommunit". Eahindividua$# therefore# partiipated in the ommunit" o,nership of the soi$ and the instruments of

prodution as a member of the baranga".B& This anient ommuna$ism ,as pratied in

aordane ,ith the onept of mutua$ sharing of resoures so that no individua$# regard$ess ofstatus# ,as ,ithout sustenane. O<ner/ o 9and <a/ none@/en or 7nmoran and e

of 51

































r: o 7/7r7c <a/ <a re:79aed e de>e9omen o 9and/.B 3arine resoures and

fishing grounds ,ere $i-e,ise free to a$$. Coasta$ ommunities depended for their eonomi

,e$fare on the -ind of fishing sharing onept simi$ar to those in $and ommunities.85 Reognized $eaders# suh as the hieftains and e$ders# b" virtue of their positions of importane#

en9o"ed some eonomi privi$eges and benefits. 2ut their rights# re$ated to either $and and sea#

,ere sub9et to their responsibi$it" to protet the ommunities from danger and to provide them,ith the $eadership and means of surviva$.8)

Someme n e 13 cen7r, I/9am <a/ nrod7ced o e arce9a:o n %a:7ndanao.

The Su$tanate of Su$u ,as estab$ished and $aimed 9urisdition over territoria$ areas represented

toda" b" Ta,i<ta,i# Su$u# Pa$a,an# 2asi$an and amboanga. 7our ethni groups ,ere ,ithin this 9urisdition? Sama# Tausug# a-an and Subanon.8/ The Su$tanate of 3aguindanao spread out

from Cotabato to,ard 3aranao territor"# no, Lanao de$ Norte and Lanao de$ Sur.8'

!e %7/9m /ocee/ e>o9>ed an A/ac orm o e7da9/m <ere 9and <a/ /99 e9d n

common b7 <a/ r>ae n 7/e. This is $ear$" indiated in the 3us$im Code of Lu,aran. The

Code ontains a provision on the $ease of u$tivated $ands. It# ho,ever# has no provision for thea0uisition# transfer# ession or sa$e of $and.8

The soieties enountered b" %a:e99an and &e:a/ therefore ,ere primitive eonomies ,here

most prodution ,as geared to the use of the produers and to the fu$fi$$ment of -inshipob$igations. The" ,ere not eonomies geared to e!hange and profit.8B 3oreover# the fami$"

basis of baranga" membership as ,e$$ as of $eadership and governane ,or-ed to sp$inter the

popu$ation of the is$ands into numerous sma$$ and separate ommunities.88

*en e Sanard/ /e9ed ermanen9 n e 9ne/ n 1565, e o7nd e

#9no/ 9>n: n baran:a /e9emen/ /caered a9on: <aer ro7e/ and r>er ban/. One

of the first tas-s imposed on the missionaries and the enomenderos ,as to o$$et a$$ sattered7i$ipinos together in a redu!!ion.8( %s ear$" as )BB)# the Spanish government assumed anunvar"ing so$iitous attitude to,ards the natives.8& The Spaniards regarded it a sared @dut" to

onsiene and humanit" to ivi$ize these $ess fortunate peop$e $iving in the obsurit" of

ignorane@ and to aord them the @mora$ and materia$ advantages@ of ommunit" $ife and the@protetion and vigi$ane afforded them b" the same $a,s.@8

The Spanish missionaries ,ere ordered to estab$ish pue+los ,here the hurh and onvent ,ou$d

be onstruted. %$$ the ne, Christian onverts ,ere re0uired to onstrut their houses around the

hurh and the unbaptized ,ere invited to do the same.(5 Kith the redu!!ion# the Spaniardsattempted to @tame@ the re$utant 7i$ipinos through Christian indotrination using the

!onvento)!asa real)plaa omp$e! as foa$ point. The redu!!ion# to the Spaniards# ,as a

@ivi$izing@ devie to ma-e the 7i$ipinos $a,<abiding itizens of the Spanish Cro,n# and in the$ong run# to ma-e them u$timate$" adopt :ispani u$ture and ivi$ization.()

A99 9and/ 9o/ b e o9d baran:a/ n e roce// o 7eb9o or:anaon a/ <e99 a/ a99 9and/

no a//:ned o em and e 7eb9o/, <ere no< dec9ared o be cro<n 9and/ or realen#as,

be9on:n: o e San/ n:. I <a/ rom e realen#as a 9and :ran/ <ere made o

non#9no/.(/

of 51

































!e abro:aon o e #9no/4 ance/ra9 r:/ n 9and and e nrod7con o e conce

o 7b9c doman <ere e mo/ mmedae 7ndamena9 re/79/ o San/ co9ona9 eor

and 9a<.(' !e conce a e San/ n: <a/ e o<ner o e>ern: o >a97e n e

Inde/ or co9one/ <a/ mo/ed on e na>e/, and e na>e/ <ere /red o er

ance/ra9 r:/ o 9and.(

Inreasing their footho$d in the Phi$ippines# the Spanish o$onia$ists# ivi$ and re$igious#

$assified the 7i$ipinos aording to their re$igious praties and be$iefs# and divided them intothree t"pes . 7irst ,ere the Indo/, the Christianized 7i$ipinos# ,ho genera$$" ame from the

$o,$and popu$ations. Seond# ,ere the %oro/ or the 3us$im ommunities# and third# ,ere the

ne9e/ or the nd:eno7/ comm7ne/.(B

The Indo ,as a produt of the advent of Spanish u$ture. This $ass ,as favored b" the

Spaniards and ,as a$$o,ed ertain status a$though be$o, the Spaniards. The %oro/ and ne9e/

,ere regarded as the $o,est $asses.(8

!e %oro/ and ne9e/ re//ed San/ r79e and Cr/an. The 3oros ,ere driven from3ani$a and the Fisa"as to 3indanaoA <9e e ne9e/, o e ner9and/. The Spaniards did

not pursue them into the deep interior. The up$and soieties ,ere natura$$" outside the immediate

onern of Spanish interest# and the $iffs and forests of the hinter$ands ,ere diffiu$t and

inaessib$e# a$$o,ing the ne9e/, in effet# re$ative seurit".(( Thus# the ne9e/, ,hih ,ere periphera$ to o$onia$ administration# ,ere not on$" ab$e to preserve their o,n u$ture but a$so

th,arted the Christianization proess# separating themse$ves from the ne,$" evo$ved Christian

ommunit".(& Their o,n po$itia$# eonomi and soia$ s"stems ,ere -ept onstant$" a$ive andvibrant.

The pro<Christian or pro<Indio attitude of o$onia$ism brought about a genera$$" mutua$ fee$ing

of suspiion# fear# and hosti$it" bet,een the Christians on the one hand and the non<Christians onthe other. Co$onia$ism tended to divide and ru$e an other,ise u$tura$$" and historia$$" re$ated popu$ae through a o$onia$ s"stem that e!p$oited both the virtues and vies of the 7i$ipinos.(

re/den %c+n9e, n / n/r7con/ o e 9ne Comm//on o Ar9 , 1?00,

addre//ed e e@/ence o e ne9e/

=In dea9n: < e 7nc>9ed rbe/ o e I/9and/, e Comm//on /o79d ado e

/ame co7r/e o99o<ed b Con:re// n ermn: e rbe/ o o7r Nor Amercan Indan/

o manan er rba9 or:anaon and :o>ernmen, and under ,hih man" of those tribes

are no, $iving in peae and ontentment# surrounded b" ivi$ization to ,hih the" are unab$e or

un,i$$ing to onform. Suh triba$ government shou$d# ho,ever# be sub9eted to ,ise and firmregu$ationA and# ,ithout undue or pett" interferene# onstant and ative effort shou$d be

e!erised to prevent barbarous praties and introdue ivi$ized ustoms.@&5

P$aed in an a$ternative of either $etting the natives a$one or guiding them in the path ofivi$ization# the %merian government hose @to adopt the $atter measure as one more in aord

,ith humanit" and ,ith the nationa$ onsiene.@&)

of 51






















The Amercan/ c9a//ed e #9no/ into t,o? the Cr/an #9no/ and the non

Cr/an #9no/. The term @non<Christian@ referred not to re$igious be$ief# but to a

geographia$ area# and more diret$"# @to natives of the Phi$ippine Is$ands of a $o, grade ofivi$ization# usua$$" $iving in triba$ re$ationship apart from sett$ed ommunities.@&/

&e e Sanard/, e Amercan/ 7r/7ed a o9c o a//m9aon. In )5'# the" passed AcNo. 253 crean: e '7rea7 o NonCr/an !rbe/ 'NC!J. Under the 1epartment of the

Interior# the 2NCTJs primar" tas- ,as to ondut ethnographi researh among unhispanized7i$ipinos# in$uding those in 3us$im 3indanao# ,ith a @speia$ vie, to determining the most

pratiab$e means for bringing about their advanement in ivi$ization and prosperit".@ !e

'NC! <a/ mode9ed aer e b7rea7 dea9n: < Amercan Indan/. The agen" too- a-een anthropo$ogia$ interest in Phi$ippine u$tura$ minorities and produed a ,ea$th of va$uab$e

materia$s about them.&'

!e 1?35 Con/7on dd no carr an o9c on e nonCr/an #9no/. !e ra:n:

//7e en <a/ e con/er>aon o e naona9 armon or e #9no/.

In 1?5, the Phi$ippine Congress passed R.A. No. 1888, an @%t to effetuate in a more rapid

and omp$ete manner the eonomi# soia$# mora$ and po$itia$ advanement of the non<Christian

7i$ipinos or nationa$ u$tura$ minorities and to render rea$# omp$ete# and permanent the

integration of a$$ said nationa$ u$tura$ minorities into the bod" po$iti# reating the Comm//on

on Naona9 Ine:raon harged ,ith said funtions.@ The $a, a$$ed for a o9c o

ne:raon of indigenous peop$es into the Phi$ippine mainstream and for this purpose reated

the Comm//on on Naona9 Ine:raon *CNI+.& The CNI ,as given# more or $ess# the sametas- as the 2NCT during the %merian regime. !e o/ndeendence o9c o ne:raon

<a/ 9e e co9ona9 o9c o a//m9aon 7nder/ood n e cone@ o a :7ardan<ard

re9aon/.&B

The po$i" of assimi$ation and integration did not "ie$d the desired resu$t. &e e Sanard/

and Amercan/, :o>ernmen aem/ a ne:raon me < erce re//ance. Sine Kor$d

Kar II# a tida$ ,ave of Christian sett$ers from the $o,$ands of Luzon and the Fisa"as s,amped

the high$ands and ,ide open spaes in 3indanao.&8 +no<9ed:e b e /e9er/ o e 7b9c

&and Ac/ and e !orren/ //em re/79ed n e 9n: o /e>era9 ance/ra9 9and/ n e

/e9er/4 name/. * :o>ernmen na>e and arcaon, / 9n: d/9aced /e>era9

nd:eno7/ eo9e/ rom er 9and/. Korse# these peop$es ,ere a$so disp$aed b" pro9etsunderta-en b" the nationa$ government in the name of nationa$ deve$opment.&(

It ,as in the 1?3 Con/7on that the State adopted the fo$$o,ing provision?

@The State sha$$ onsider the ustoms# traditions# be$iefs# and interests of nationa$ u$tura$

ommunities in the formu$ation and imp$ementation of State po$iies.@&&

#or e r/ me n 9ne /or, e =nonCr/an rbe/= or e =c797ra9

mnore/= <ere addre//ed b e :e/ 9a< o e Re7b9c, and e <ere reerred o a/

=c797ra9 comm7ne/.= 3ore important$" this time# their @univi$ized@ u$ture ,as given some

reognition and their @ustoms# traditions# be$iefs and interests@ ,ere to be onsidered b" the

of 51



















State in the formu$ation and imp$ementation of State po$iies. re/den %arco/ abo$ished the

CNI and transferred its funtions to the re/dena9 Ad>/er on Naona9 %nore/

ANA%INJ. The ANA%IN ,as tas-ed to integrate the ethni groups that sought fu$$integration into the $arger ommunit"# and at the same time @protet the rights of those ,ho ,ish

to preserve their origina$ $ife,a"s beside the $arger ommunit".@& In /or, <9e /99 adon:

e ne:raon o9c, e decree reco:ned e r: o rba9 #9no/ o re/er>e er<a o 9e.5

In 1?F, President 3aros promu$gated .D. No. F10, other,ise -no,n as the Ance/ra9 &and/

Decree. The deree provided for the issuane of $and oupan" ertifiates to members of the

nationa$ u$tura$ ommunities ,ho ,ere given up to )& to register their $aims.) In )(# the

Comm//on on e Se9emen o &and rob9em/ ,as reated under E.O. No. B8) ,hih

provided a mehanism for the e!peditious reso$ution of $and prob$ems invo$ving sma$$ sett$ers#

$ando,ners# and triba$ 7i$ipinos./

1espite the promu$gation of these $a,s# from )( to the ear$" )&5Js# some )55#555 Ga$ingas

and 2onto-s of the Cordi$$era region ,ere disp$aed b" the Chio River dam pro9et of the Nationa$ Po,er Corporation *NPC+. The 3anobos of 2u-idnon sa, their $and bu$$dozed b" the

2u-idnon Sugar Industries Compan" *2USCO+. In %gusan de$ Sur# the Nationa$ 1eve$opmentCompan" ,as authorized b" $a, in )( to ta-e appro!imate$" 5#BB5 hetares of $and that $ater

beame the N1C<4uthrie p$antation in %gusan de$ Sur. 3ost of the $and ,as possessed b" the

%gusan natives.' Timber onessions# ,ater pro9ets# p$antations# mining# and att$e ranhingand other pro9ets of the nationa$ government $ed not on$" to the evition of the indigenous

peop$es from their $and but a$so to the redution and destrution of their natura$ environment.

!e A7no :o>ernmen /:ned a oa9 / rom e o9c o ne:raon o one o

re/er>aon. Invo-ing her po,ers under the 7reedom Constitution# President %0uino reated

the Oce o %7/9m Aar/, Oce or Norern C797ra9 Comm7ne/ and e Oce orSo7ern C797ra9 Comm7ne/ a99 7nder e Oce o e re/den.B

The 1?8 Con/7on carre/ a 9ea/ /@ 6J ro>/on/ <c n/7re e r: o rba9

#9no/ o re/er>e er <a o 9e.8 !/ Con/7on :oe/ 7rer an e 1?3

Con/7on b e@re//9 :7araneen: e r:/ o rba9 #9no/ o er ance/ra9

doman/ and ance/ra9 9and/. ' reco:nn: er r: o er ance/ra9 9and/ and

doman/, e Sae a/ eec>e9 7e9d er r: o 9>e n a c797re d/nc9 er o<n.

2. !er Conce o &and

Ind:eno7/ eo9e/ /are d/nc>e ra/ that set them apart from the 7i$ipino mainstream.The" are non<Christians. The" $ive in $ess aessib$e# margina$# most$" up$and areas. The" have a

s"stem of se$f<government not dependent upon the $a,s of the entra$ administration of the

Repub$i of the Phi$ippines. The" fo$$o, ,a"s of $ife and ustoms that are pereived as differentfrom those of the rest of the popu$ation.( The -ind of response the indigenous peop$es hose to

dea$ ,ith o$onia$ threat ,or-ed ,e$$ to their advantage b" ma-ing it diffiu$t for Kestern

onepts and re$igion to erode their ustoms and traditions. The @infie$es soieties@ ,hih had beome periphera$ to o$onia$ administration# represented# from a u$tura$ perspetive# a muh

of 51





















o$der base of arhipe$agi u$ture. The po$itia$ s"stems ,ere sti$$ strutured on the patriarha$

and -inship oriented arrangement of po,er and authorit". The eonomi ativities ,ere governed

b" the onepts of an anient ommuna$ism and mutua$ he$p. The soia$ struture ,hihemphasized division of $abor and distintion of funtions# not status# ,as maintained. The

u$tura$ st"$es and forms of $ife portra"ing the varieties of soia$ ourtesies and eo$ogia$

ad9ustments ,ere -ept onstant$" vibrant.&

&and / e cenra9 e9emen o e nd:eno7/ eo9e/4 e@/ence. There is no traditiona$onept of permanent# individua$# $and o,nership. %mong the Igorots# o,nership of $and more

aurate$" app$ies to the triba$ right to use the $and or to territoria$ ontro$. The peop$e are the

seondar" o,ners or ste,ards of the $and and that if a member of the tribe eases to ,or-# he$oses his $aim of o,nership# and the $and reverts to the beings of the spirit ,or$d ,ho are its true

and primar" o,ners. Under the onept of @trusteeship#@ the right to possess the $and does not

on$" be$ong to the present generation but the future ones as ,e$$.

C7/omar 9a< on 9and rests on the traditiona$ be$ief that no one o,ns the $and e!ept the gods

and spirits# and that those ,ho ,or- the $and are its mere ste,ards.

)55

C7/omar 9a< a/ a/ron: reerence or comm7na9 o<ner/, ,hih ou$d either be o,nership b" a group of

individua$s or fami$ies ,ho are re$ated b" b$ood or b" marriage#)5) or o,nership b" residents ofthe same $oa$it" ,ho ma" not be re$ated b" b$ood or marriage. The s"stem of ommuna$

o,nership under ustomar" $a,s dra,s its meaning from the subsistene and high$"

o$$etivized mode of eonomi prodution. The Ga$ingas# for instane# ,ho are engaged in teamoupation $i-e hunting# foraging for forest produts# and s,idden farming found it natura$ that

forest areas# s,idden farms# orhards# pasture and buria$ grounds shou$d be ommuna$$"<

o,ned.)5/ 7or the Ga$ingas# ever"bod" has a ommon right to a ommon eonomi base. Thus#

as a ru$e# rights and ob$igations to the $and are shared in ommon.

A9o7: :9 ben on comm7na9 o<ner/, c7/omar 9a< on 9and a9/o /ancon/nd>d7a9 o<ner/. The residentia$ $ots and terrae rie farms are governed b" a 9med

//em o nd>d7a9 o<ner/. It is $imited beause ,hi$e the individua$ o,ner has the right touse and dispose of the propert"# he does not possess a$$ the rights of an e!$usive and fu$$ o,ner

as defined under our Civi$ Code.)5' Under Ga$inga ustomar" $a,# the a$ienation of individua$$"<

o,ned $and is strong$" disouraged e!ept in marriage and suession and e!ept to meet sudden

finania$ needs due to si-ness# death in the fami$"# or $oss of rops.)5 3oreover# and to bea$ienated shou$d first be offered to a $an<member before an" vi$$age<member an purhase it#

and in no ase ma" $and be so$d to a non<member of the ili.)5B

&and 9e/ do no e@/ n e nd:eno7/ eo9e/4 economc and /oca9 //em. !e conce

o nd>d7a9 9and o<ner/ 7nder e c>9 9a< / a9en o em. Ineren9 co9ona9 n

or:n, o7r naona9 9and 9a</ and :o>ernmena9 o9ce/ ro<n 7on nd:eno7/ c9am/ o

ance/ra9 9and/. Comm7na9 o<ner/ / 9ooed 7on a/ neror, no ne@/en.)58

III. !(E IRA IS A NO$E& IECE O# &EGIS&A!ION.

A. !e &e:/9a>e (/or o e IRA

of 51























I <a/ o addre// e cen7re/o9d ne:9ec o e 9ne nd:eno7/ eo9e/ that the

Tenth Congress of the Phi$ippines# b" their 9oint efforts# passed and approved R.A. No. 831, e

Ind:eno7/ eo9e/ R:/ Ac IRAJ o 1??. The $a, ,as a onso$idation of t,o 2i$$s<Senate 2i$$ No. )(/& and :ouse 2i$$ No. )/B.

Prinipa$$" sponsored b" Senaor )7an %. #9a>er,)5(

Senae '99 No. 128 ,as a onso$idationof four proposed measures referred to the Committees on Cu$tura$ Communities# Environment

and Natura$ Resoures# Ka"s and 3eans# as ,e$$ as 7inane. It adopted a$most en toto theomprehensive version of Senate 2i$$ Nos. )(8 and )&8 ,hih ,as a resu$t of /@ re:ona9

con/79aon/ and one naona9 con/79aon < nd:eno7/ eo9e/ naon<de.)5& %t the

Seond Regu$ar Session of the Tenth Congress# Senator 7$avier# in his sponsorship speeh# gavea ba-ground on the situation of indigenous peop$es in the Phi$ippines# to ,it?

@The Indigenous Cu$tura$ Communities# in$uding the 2angsa 3oro# have $ong suffered from the

dominane and neg$et of government ontro$$ed b" the ma9orit". 3assive migration of their

Christian brothers to their home$and shrun- their territor" and man" of the triba$ 7i$ipinos ,ere

pushed to the hinter$ands. Resisting the intrusion# dispossessed of their anestra$ $and and ,iththe massive e!p$oitation of their natura$ resoures b" the e$ite among the migrant popu$ation#

the" beame margina$ized. %nd the government has been an indispensab$e part" to this insidiousonspira" against the Indigenous Cu$tura$ Communities *ICCs+. It organized and supported the

resett$ement of peop$e to their anestra$ $and# ,hih ,as massive during the Common,ea$th and

ear$" "ears of the Phi$ippine Repub$i. Pursuant to the Rega$ian 1otrine first introdued to ours"stem b" Spain through the Ro"a$ 1eree of )' 7ebruar" )& or the 3aura La,# the

government passed $a,s to $egitimize the ,ho$esa$e $andgrabbing and provide for eas" tit$ing or

grant of $ands to migrant homesteaders ,ithin the traditiona$ areas of the ICCs.@)5

Senator 7$avier further de$ared?

@The IPs are the offsprings and heirs of the peop$es ,ho have first inhabited and ared for the$and $ong before an" entra$ government ,as estab$ished. Their anestors had territories over

,hih the" ru$ed themse$ves and re$ated ,ith other tribes. These territories< the $and< in$ude

peop$e# their d,e$$ing# the mountains# the ,ater# the air# p$ants# forest and the anima$s. This istheir environment in its tota$it". Their e!istene as indigenous peop$es is manifested in their o,n

$ives through po$itia$# eonomi# soio<u$tura$ and spiritua$ praties. The IPs u$ture is the

$iving and irrefutab$e proof to this.

Their surviva$ depends on seuring or a0uiring $and rightsA asserting their rights to itA anddepending on it. Other,ise# IPs sha$$ ease to e!ist as distint peop$es.@))5

To reognize the rights of the indigenous peop$es effetive$"# Senator 7$avier proposed a bi$$

based on <o o/79ae/ *)+ the onept of native tit$eA and */+ the prinip$e of parens patriae.

%ording to Senator 7$avier# @D,hi$e our $ega$ tradition subsribes to the Rega$ian 1otrinereinstated in Setion /# %rti$e >II of the )&( Constitution#@ our @deisiona$ $a,s@ and

9urisprudene passed b" the State have @made e!eption to the dotrine.@ This e!eption ,as

r/ 9ad do<n in the ase of Cari$o v. Insular %overnment ,here?

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@! ! ! the ourt has reognized $ong oupan" of $and b" an indigenous member of the u$tura$

ommunities as one of private o,nership# ,hih# in $ega$ onept# is termed @native tit$e.@ This

ru$ing has not been overturned. In fat# it ,as affirmed in subse0uent ases.@)))

7o$$o,ing Cari$o# the State passed %t No. /8# %t No. /&(# C.%. No. ))# P.1. (5B# P.1.

)5# P.1. )B/# R.%. 8(' *the Organi %t for the %utonomous Region of 3us$im 3indanao+.These $a,s# e!p$iit$" or imp$iit$"# and $ibera$$" or restritive$"# reognized @native tit$e@ or

@private right@ and the e!istene of anestra$ $ands and domains. 1espite the passage of these$a,s# ho,ever# Senator 7$avier ontinued?

@! ! ! the e!eutive department of government sine the %merian oupation has not

imp$emented the po$i". In fat# it ,as more honored in its breah than in its observane# its,anton disregard sho,n during the period unto the Common,ea$th and the ear$" "ears of the

Phi$ippine Repub$i ,hen government organized and supported massive resett$ement of the

peop$e to the $and of the ICCs.@

Senate 2i$$ No. )(/& see-s to genuine$" reognize the IPs right to o,n and possess theiranestra$ $and. The bi$$ ,as prepared a$so under the prinip$e of parens patriae inherent in the

supreme po,er of the State and deep$" embedded in Phi$ippine $ega$ tradition. This prinip$e

mandates that persons suffering from serious disadvantage or handiap# ,hih p$aes them in a

position of atua$ ine0ua$it" in their re$ation or transation ,ith others# are entit$ed to the protetion of the State.

Senae '99 No. 128 <a/ a//ed on !rd Readn: b <enone 21J Senaor/ >on: n

a>or and none a:an/, < no ab/enon.))/

(o7/e '99 No. ?125 ,as sponsored b" Re. Zaaa, Chairman of the Committee on Cu$tura$

Communities. It ,as origina$$" authored and subse0uent$" presented and defended on the f$oor b" Re. Gre:oro Ando9ana of North Cotabato.))'

Rep. %ndo$anaJs sponsorhip speeh reads as fo$$o,s?

@This Representation# as ear$" as in the &th Congress# fi$ed a bi$$ of simi$ar imp$iations that,ou$d promote# reognize the rights of indigenous u$tura$ ommunities ,ithin the frame,or- of

nationa$ unit" and deve$opment.

%part from this# 3r. Spea-er# is our ob$igation# the governmentJs ob$igation to assure and

asertain that these rights sha$$ be ,e$$<preserved and the u$tura$ traditions as ,e$$ as the

indigenous $a,s that remained $ong before this Repub$i ,as estab$ished sha$$ be preserved and promoted. There is a need# 3r. Spea-er# to $oo- into these matters serious$" and ear$" approva$ of

the substitute bi$$ sha$$ bring into rea$it" the aspirations# the hope and the dreams of more than )/

mi$$ion 7i$ipinos that the" be onsidered in the mainstream of the Phi$ippine soiet" as ,efashion for the "ear /555.@ ))

Rep. %ndo$ana stressed that :.2. No. )/B is based on the po$i" of preservation as mandated in

the Constitution. :e a$so emphasized that the rights of IPs to their $and ,as enuniated in

of 51












Cari$o v. Insular %overnment ,hih reognized the fat that the" had vested rights prior to the

estab$ishment of the Spanish and %merian regimes.))B

Aer e@a7/>e nere99aon, (o7/e '99 No. ?125, and / corre/ondn: amendmen/,

<a/ aro>ed on Second Readn: < no ob;econ/.

I$. !(E RO$ISIONS O# !(E IRA DO NO! CON!RA$ENE !(E CONS!I!U!ION.

A. Ance/ra9 Doman/ and Ance/ra9 &and/ are e r>ae roer o Ind:eno7/ eo9e/

and Do No Con/7e ar o e &and o e 7b9c Doman.

!e IRA :ran/ o ICC/HI/ a d/nc nd o o<ner/ o>er ance/ra9 doman/ and

ance/ra9 9and/. %nestra$ $ands are not the same as anestra$ domains. These are defined in

Setion ' Da and Db of the Indigenous Peop$es Right %t# vi ?

&'ec. ( a) Ancestral *omains. < Sub9et to Setion B8 hereof# refer to a$$ areas genera$$"

be$onging to ICCs;IPs omprising $ands# in$and ,aters# oasta$ areas# and natura$ resourestherein# he$d under a $aim of o,nership# oupied or possessed b" ICCs;IPs b" themse$ves or

through their anestors# ommuna$$" or individua$$" sine time immemoria$# ontinuous$" to the

present e!ept ,hen interrupted b" ,ar# fore ma9eure or disp$aement b" fore# deeit# stea$thor as a onse0uene of government pro9ets or an" other vo$untar" dea$ings entered into b"

government and private individua$s;orporations# and ,hih are neessar" to ensure their

eonomi# soia$ and u$tura$ ,e$fare. It sha$$ in$ude anestra$ $ands# forests# pasture#

residentia$# agriu$tura$# and other $ands individua$$" o,ned ,hether a$ienab$e and disposab$e orother,ise# hunting grounds# buria$ grounds# ,orship areas# bodies of ,ater# minera$ and other

natura$ resoures# and $ands ,hih ma" no $onger be e!$usive$" oupied b" ICCs;IPs but from

,hih the" traditiona$$" had aess to for their subsistene and traditiona$ ativities# partiu$ar$"

the home ranges of ICCs;IPs ,ho are sti$$ nomadi and;or shifting u$tivatorsA

+) Ancestral Lands.< Sub9et to Setion B8 hereof# refers to $and oupied# possessed and uti$ized

b" individua$s# fami$ies and $ans ,ho are members of the ICCs;IPs sine time immemoria$# b"

themse$ves or through their predeessors<in<interest# under $aims of individua$ or traditiona$group o,nership# ontinuous$"# to the present e!ept ,hen interrupted b" ,ar# fore ma9eure or

disp$aement b" fore# deeit# stea$th# or as a onse0uene of government pro9ets and other

vo$untar" dea$ings entered into b" government and private individua$s;orporations# in$uding# but not $imited to# residentia$ $ots# rie terraes or paddies# private forests# s,idden farms and

tree $ots.@

Ance/ra9 doman/ are a$$ areas be$onging to ICCs;IPs he$d under a $aim of o,nership#oupied or possessed b" ICCs;IPs b" themse$ves or through their anestors# ommuna$$" orindividua$$" sine time immemoria$# ontinuous$" unti$ the present# e!ept ,hen interrupted b"

,ar# fore ma9eure or disp$aement b" fore# deeit# stea$th or as a onse0uene of government

pro9ets or an" other vo$untar" dea$ings ,ith government and;or private individua$s ororporations. Ance/ra9 doman/ comr/e 9and/, n9and <aer/, coa/a9 area/, and na7ra9

re/o7rce/ eren and nc97de/ ance/ra9 9and/, ore//, a/7re, re/dena9, a:rc797ra9,

and oer 9and/ nd>d7a99 o<ned <eer a9enab9e or no, 7nn: :ro7nd/, b7ra9

of 51





:ro7nd/, <or/ area/, bode/ o <aer, mnera9 and oer na7ra9 re/o7rce/. The" a$so

in$ude $ands ,hih ma" no $onger be e!$usive$" oupied b" ICCs;IPs but from ,hih the"

traditiona$$" had aess to for their subsistene and traditiona$ ativities# partiu$ar$" the homeranges of ICCs;IPs ,ho are sti$$ nomadi and;or shifting u$tivators.))8

Ance/ra9 9and/ are $ands he$d b" the ICCs;IPs under the same onditions as anestra$ domainse!ept that these are $imited to $ands and that these $ands are not mere$" oupied and possessed

but are a$so uti$ized b" the ICCs;IPs under $aims of individua$ or traditiona$ group o,nership.These $ands in$ude but are not $imited to residentia$ $ots# rie terraes or paddies# private forests#

s,idden farms and tree $ots.))(

The proedures for $aiming anestra$ domains and $ands are simi$ar to the proedures embodiedin 1epartment %dministrative Order *1%O+ No. /# series of )'# signed b" then Seretar" of

the 1epartment of Environment and Natura$ Resoures *1ENR+ %nge$ %$a$a.))& 1%O No. /

a$$o,ed the de$ineation of anestra$ domains b" speia$ tas- fores and ensured the issuane of

Certifiates of %nestra$ Land C$aims *C%LCJs+ and Certifiates of %nestra$ 1omain C$aims

*C%1CJs+ to IPs.

The identifiation and de$ineation of these anestra$ domains and $ands is a po,er onferred b"

the IPR% on the Nationa$ Commission on Indigenous Peop$es *NCIP+.)) The guiding prinip$e in

identifiation and de$ineation is se$f<de$ineation.)/5 This means that the ICCs;IPs have a deisivero$e in determining the boundaries of their domains and in a$$ the ativities pertinent thereto.)/)

The proedure for the de$ineation and reognition of ance/ra9 doman/ is set forth in Setions

B) and B/ of the IPR%. The identifiation# de$ineation and ertifiation of ance/ra9 9and/ is inSetion B' of said $a,.

Upon due app$iation and omp$iane ,ith the proedure provided under the $a, and uponfinding b" the NCIP that the app$iation is meritorious# the NCIP sha$$ issue a Certifiate of

%nestra$ 1omain Tit$e *C%1T+ in the name of the ommunit" onerned.)// The a$$oation of

9and/ <n e ance/ra9 doman to an" individua$ or indigenous orporate *fami$" or $an+

$aimants is $eft to the ICCs;IPs onerned to deide in aordane ,ith ustoms and

traditions.)/' Kith respet to anestra$ 9and/ o7/de e ance/ra9 doman# the NCIP issues a

Certifiate of %nestra$ Land Tit$e *C%LT+.)/

C%1TJs and C%LTJs issued under the IPR% sha$$ be registered b" the NCIP before the Register

of 1eeds in the p$ae ,here the propert" is situated.)/B

*1J R: o Ance/ra9 Doman/ and Ance/ra9 &and/ (o< Ac7red

The rights of the ICCs;IPs to their anestra$ domains and anestra$ $ands ma" be a0uired in t,o

modes? 1J b na>e 9e o>er bo ance/ra9 9and/ and doman/K or 2J b orren/ 9e

7nder e 7b9c &and Ac and e &and Re:/raon Ac < re/ec o ance/ra9 9and/

on9.

2J !e Conce o Na>e !9e

of 51























Native tit$e is defined as?

@#e!. % &l'. Native Title< refers to pre<on0uest rights to $ands and domains ,hih# as far ba- as

memor" reahes# have been he$d under a $aim of r>ae o,nership b" ICCs;IPs# have never been pub$i $ands and are thus nd/7ab9 re/7med to have been he$d that ,a" sine before

the Spanish Con0uest.@)/8

Na>e 9e refers to ICCs;IPsJ preon0uest rights to $ands and domains he$d under a $aim of

private o,nership as far ba- as memor" reahes. These $ands are deemed never to have been pub$i $ands and are indisputab$" presumed to have been he$d that ,a" sine before the Spanish

Con0uest. The rights of ICCs;IPs to their anestra$ doman/ *,hih a$so in$ude anestra$ $ands+

b" virtue of native tit$e sha$$ be reognized and respeted.)/( 7orma$ reognition# ,hen so$iited b" ICCs;IPs onerned# sha$$ be embodied in a Certifiate of %nestra$ 1omain Tit$e *C%1T+#

,hih sha$$ reognize the tit$e of the onerned ICCs;IPs over the territories identified and

de$ineated.)/&

Li-e a torrens tit$e# a C%1T is evidene of private o,nership of $and b" native tit$e. Na>e 9e#ho,ever# is a right of private o,nership peu$iar$" granted to ICCs;IPs over their anestra$ $ands

and domains. The IPR% ategoria$$" de$ares anestra$ $ands and domains he$d b" native tit$e as

ne>er o a>e been pub$i $and. 1omains and $ands he$d under native tit$e are# therefore#

indisputab$" presumed to have never been pub$i $ands and are private.

aJ CarLo >. In/79ar Go>ernmen)/

The onept of native tit$e in the IPR% ,as ta-en from the )5 ase of Cari$o v. Insular

%overnment .)'5 Cari$o firm$" estab$ished a onept of private $and tit$e that e!isted irrespetive

of an" ro"a$ grant from the State.

In )5'# 1on 3ateo Cario# an Iba$oi# sought to register ,ith the $and registration ourt )8hetares of $and in 2aguio 3uniipa$it"# 2enguet Provine. :e $aimed that this $and had been

possessed and oupied b" his anestors sine time immemoria$A that his grandfather bui$t fenes

around the propert" for the ho$ding of att$e and that his father u$tivated some parts of the $and.Cario inherited the $and in aordane ,ith Igorot ustom. :e tried to have the $and ad9usted

under the Spanish $and $a,s# but no doument issued from the Spanish Cro,n.)') In )5)# Cario

obtained a possessor" tit$e to the $and under the Spanish 3ortgage La,.)'/ The North %meriano$onia$ government# ho,ever# ignored his possessor" tit$e and bui$t a pub$i road on the $and

prompting him to see- a Torrens tit$e to his propert" in the $and registration ourt. Khi$e his

petition ,as pending# a U.S. mi$itar" reservation)'' ,as pro$aimed over his $and and# short$"

thereafter# a mi$itar" detahment ,as detai$ed on the propert" ,ith orders to -eep att$e andtrespassers# in$uding Cario# off the $and.)'

In )5# the $and registration ourt granted CarioJs app$iation for abso$ute o,nership to the

$and. 2oth the 4overnment of the Phi$ippine Is$ands and the U.S. 4overnment appea$ed to theC.7.I. of 2enguet ,hih reversed the $and registration ourt and dismissed CarioJs app$iation.

The Phi$ippine Supreme Court)'B affirmed the C.7.I. b" app$"ing the Valenton ru$ing. Cario

too- the ase to the U.S. Supreme Court.)'8 On one hand# the Phi$ippine government invo-ed the

of 51


























Rega$ian dotrine and ontended that Cario fai$ed to omp$" ,ith the provisions of the Ro"a$

1eree of 6une /B# )&&5# ,hih re0uired registration of $and $aims ,ithin a $imited period of

time. Cario# on the other# asserted that he ,as the abso$ute o,ner of the $and jure gentiu# andthat the $and never formed part of the pub$i domain.

In a unanimous deision ,ritten b" 6ustie O$iver Kende$$ :o$mes# the U.S. Supreme Courthe$d?

@It is true that Spain# in its ear$ier derees# embodied the universa$ feuda$ theor" that a$$ $ands,ere he$d from the Cro,n# and perhaps the genera$ attitude of on0uering nations to,ard peop$e

not reognized as entit$ed to the treatment aorded to those in the same zone of ivi$ization ,ith

themse$ves. It is true# a$so# that in $ega$ theor"# sovereignt" is abso$ute# and that# as againstforeign nations# the United States ma" assert# as Spain asserted# abso$ute po,er. 2ut it does not

fo$$o, that# as against the inhabitants of the Phi$ippines# the United States asserts that Spain had

suh po,er. Khen theor" is $eft on one side# sovereignt" is a 0uestion of strength# and ma" var"

in degree. :o, far a ne, sovereign sha$$ insist upon the theoretia$ re$ation of the sub9ets to the

head in the past# and ho, far it sha$$ reognize atua$ fats# are matters for it to deide.@

)'(

The U.S. Supreme Court noted that it need not aept Spanish dotrines. The hoie ,as ,ith the

ne, o$onizer. U$timate$"# the matter had to be deided under U.S. $a,.

The Cari$o deision $arge$" rested on the North %merian onstitutiona$istJs onept of @due proess@ as ,e$$ as the pronouned po$i" @to do 9ustie to the natives.@)'& It ,as based on the

strong mandate e!tended to the Is$ands via the Phi$ippine 2i$$ of )5/ that @No $a, sha$$ be

enated in said is$ands ,hih sha$$ deprive an" person of $ife# $ibert"# or propert" ,ithout due proess of $a,# or den" to an" person therein the e0ua$ protetion of the $a,s.@ The ourt

de$ared?

@The a0uisition of the Phi$ippines ,as not $i-e the sett$ement of the ,hite rae in the United

States. Khatever onsideration ma" have been sho,n to the North %merian Indians# thedominant purpose of the ,hites in %meria ,as to oup" $and. It is obvious that# ho,ever

stated# the reason for our ta-ing over the Phi$ippines ,as different. No one# ,e suppose# ,ou$d

den" that# so far as onsistent ,ith paramount neessities# our first ob9et in the interna$

administration of the is$ands is to do 9ustie to the natives# not to e!p$oit their ountr" for privategain. 2" the Organi %t of 6u$" )# )5/# hapter )'8# setion )/ *'/ Statutes at Large# 8)+# a$$

the propert" and rights a0uired there b" the United States are to be administered Jfor the benefit

of the inhabitants thereof.J It is reasonab$e to suppose that the attitude thus assumed b" theUnited States ,ith regard to ,hat ,as un0uestionab$" its o,n is a$so its attitude in deiding ,hat

it ,i$$ $aim for its o,n. The same statute made a bi$$ of rights# embod"ing the safeguards of the

Constitution# and# $i-e the Constitution# e!tends those safeguards to a$$. It provides that Jno $a,sha$$ be enated in said is$ands ,hih sha$$ deprive an" person of $ife# $ibert"# or propert" ,ithout

due proess of $a,# or den" to an" person therein the e0ua$ protetion of the $a,s.J In the $ight of

the de$aration that ,e have 0uoted from setion )/# it is hard to be$ieve that the United States,as read" to de$are in the ne!t breath that @an" person@ did not embrae the inhabitants of

2enguet# or that it meant b" @propert"@ on$" that ,hih had beome suh b" eremonies of

,hih presumab$" a $arge part of the inhabitants never had heard# and that it proposed to treat as

of 51







pub$i $and ,hat the"# b" native ustom and b" $ong assoiation#< of the profoundest fators in

human thought#< regarded as their o,n.@)'

The Court ,ent further?

@Ever" presumption is and ought to be against the government in a ase $i-e the present. Im:, era/, be roer and /7cen o /a a <en, a/ ar bac a/ e/mon or

memor :oe/, e 9and a/ been e9d b nd>d7a9/ 7nder a c9am o r>ae o<ner/,

<99 be re/7med o a>e been e9d n e /ame <a rom beore e San/ con7e/, and

ne>er o a>e been 7b9c 9and. Certain$" in a ase $i-e this# if there is doubt or ambiguit" in

the Spanish $a,# ,e ought to give the app$iant the benefit of the doubt.@)5

The ourt thus $aid do,n the re/7mon of a ertain tit$e he$d *)+ as far ba- as testimon" or

memor" ,ent# and */+ under a $aim of private o,nership. Land he$d b" this tit$e is presumed to@never have been pub$i $and.@

%gainst this presumption# the U.S. Supreme Court ana$"zed the Spanish derees uphe$d in the)5 deision of Valenton v. Murciano. The U.S. Supreme Court found no proof that the

Spanish derees did no honor native tit$e. On the ontrar"# the derees disussed in Valenton appeared to reognize that the natives o,ned some $and# irrespetive of an" ro"a$ grant. The

Rega$ian dotrine de$ared in the preamb$e of the Re!opila!ion ,as a$$ @theor" and disourse@

and it ,as observed that tit$es ,ere admitted to e!ist be"ond the po,ers of the Cro,n# viz?

=I e a9can4/ ca/e / o be red b e 9a< o San, <e do no d/co>er /7c c9ear

roo a <a/ bad b a 9a< a/ o /a/ 7/ a e doe/ no o<n e 9and. !o be:n

<, e o9der decree/ and 9a</ ced b e co7n/e9 or e 9an n error /eem o

ndcae re c9ear9 a e na>e/ <ere reco:ned a/ o<nn: /ome 9and/, rre/ec>e

o an roa9 :ran. In other ,ords# Spain did not assume to onvert a$$ the native inhabitants ofthe Phi$ippines into trespassers or even into tenants at ,i$$. 7or instane# 2oo- # tit$e )/# La, )

of the the Re!opila!ion de Le"es de las Indias# ited for a ontrar" on$usion in Fa$enton v.3uriano# ' Phi$ippine B'(# ,hi$e it ommands viero"s and others# ,hen it seems proper# to

a$$ for the e!hibition of grants# direts them to onfirm those ,ho ho$d b" good grants or justa

pres!rip!ion. I / r7e a be:n/ b e caracer/c a//eron o e7da9 o>er9ord/

and e or:n o a99 9e/ n e +n: or / redece//or/. !a <a/ eor and d/co7r/e.

!e ac <a/ a 9e/ <ere admed o e@/ a o<ed non: o e o<er/ o San

beond / reco:non n er boo/.= *Emphasis supp$ied+.))

The ourt further stated that the Spanish @ad9ustment@ proeedings never he$d s,a" over

unon0uered territories. The ,ording of the Spanish $a,s ,ere not framed in a manner as toonve" to the natives that fai$ure to register ,hat to them has a$,a"s been their o,n ,ou$d mean

$oss of suh $and. The registration re0uirement ,as @not to onfer tit$e# but simp$" to estab$ish

itA@ it ,as @not a$u$ated to onve" to the mind of an Igorot hief the notion that anient fami$" possessions ,ere in danger# if he had read ever" ,ord of it.@

2" reognizing this -ind of tit$e# the ourt $ear$" re7daed the dotrine of Valenton. It ,as

fran- enough# ho,ever# to admit the possibi$it" that the app$iant might have been deprived of

of 51









his $and under Spanish $a, beause of the inherent ambiguit" of the derees and onomitant$"#

the various interpretations ,hih ma" be given them. '7 rec/e9 beca7/e o e amb:7

and o e /ron: =d7e roce// mandae= o e Con/7on, e co7r >a9daed / nd

o 9e.)/ This tit$e ,as suffiient# even ,ithout government administrative ation# and entit$ed

the ho$der to a Torrens ertifiate. 6ustie :o$mes e!p$ained?

@It ,i$$ be pereived that the rights of the app$iant under the Spanish $a, present a prob$em not

,ithout diffiu$ties for ourts of a $ega$ tradition. Ke have deemed it proper on that aount tonotie the possib$e effet of the hange of sovereignt" and the at of Congress estab$ishing the

fundamenta$ prinip$es no, to be observed. Upon a onsideration of the ,ho$e ase ,e are of the

opinion that $a, and 9ustie re0uire that the app$iant shou$d be granted ,hat he see-s# andshou$d not be deprived of ,hat# b" the pratie and be$ief of those among ,hom he $ived# ,as

his propert"# through a refined interpretation of an a$most forgotten $a, of Spain.@)'

!7/, e co7r r79ed n a>or o CarLo and ordered e re:/raon o e 1F8 ecare/ n

'a:7o %7nca9 n / name.)

E!amining Cari$o $oser# the U.S. Supreme Court did not ategoria$$" refer to the tit$e it uphe$d

as @native tit$e.@ It simp$" said?

=!e ro>nce o 'en:7e <a/ nabed b a rbe a e So9corGenera9, n /

ar:7men, caracered a/ a /a>a:e rbe a ne>er <a/ bro7: 7nder e c>9 or

m9ar :o>ernmen o e San/ Cro<n. I /eem/ robab9e, no ceran, a e

San/ oca9/ <o79d no a>e :raned o anone n a ro>nce e re:/raon o

<c ormer9 e 9an <a/ en9ed b e San/ &a</, and <c <o79d a>e made

/ 9e beond 7e/on :ood. Khatever ma" have been the tehnia$ position of Spain it does

not fo$$o, that# in the vie, of the United States# he had $ost a$$ rights and ,as a mere trespasser

,hen the present government seized his $and. The argument to that effet seems to amount to adenia$ of na>e 9e/ through an important part of the Is$and of Luzon# at $east# for the ,ant oferemonies ,hih the Spaniards ,ou$d not have permitted and had not the po,er to enfore.@)B

This is the on$" instane ,hen 6ustie :o$mes used the term @native tit$e@ in the entire $ength of

the Cari$o deision. It is observed that the ,idespread use of the term @native tit$e@ ma" be

traed to Professor O,en 6ames L"nh# 6r.# a Fisiting Professor at the Universit" of thePhi$ippines Co$$ege of La, from the a$e Universit" La, Shoo$. In )&/# Prof. L"nh

pub$ished an arti$e in the 9ne &a< )o7rna9 entit$ed ,ative -itle Private Ri#/t and

-ri+al Land La0.)8 This arti$e ,as made after Professor L"nh visited over thirt" triba$ommunities throughout the ountr" and studied the origin and deve$opment of Phi$ippine $and

$a,s.)( :e disussedCari$o

e!tensive$" and used the term @native tit$e@ to refer to CarioJs tit$e

as disussed and uphe$d b" the U.S. Supreme Court in said ase.

*b+ Indian Tit$e

In a footnote in the same arti$e# Professor L"nh stated that the onept of @native tit$e@ as

defined b" 6ustie :o$mes in (ari-o @is oneptua$$" simi$ar to @aborigina$ tit$e@ of the

%merian Indians.)& This is not surprising# aording to Prof. L"nh# onsidering that during the

of 51


















%merian regime# government po$i" to,ards ICCs;IPs ,as onsistent$" made in referene to

native %merians.) This ,as $ear$" demonstrated in the ase of Ru+i v. Provincial 1oard o2

Mindoro.)B5

In Ru+i # the Provinia$ 2oard of 3indoro adopted a Reso$ution authorizing the provinia$

governor to remove the 3ang"ans from their domains and p$ae them in a permanent reservationin Sitio Tigbao# La-e Nau9an. %n" 3ang"an ,ho refused to omp$" ,as to be imprisoned. Rubi

and some 3ang"ans# in$uding one ,ho ,as imprisoned for tr"ing to esape from thereservation# fi$ed for habeas orpus $aiming deprivation of $ibert" under the 2oard Reso$ution.

This Court denied the petition on the ground of po$ie po,er. It uphe$d government po$i"

promoting the idea that a permanent sett$ement ,as the on$" suessfu$ method for eduating the3ang"ans# introduing ivi$ized ustoms# improving their hea$th and mora$s# and proteting the

pub$i forests in ,hih the" roamed.)B) Spea-ing through 6ustie 3a$o$m# the ourt said?

@Referene ,as made in the PresidentJs instrutions to the Commission to the po$i" adopted b"

the United States for the Indian Tribes. The methods fo$$o,ed b" the 4overnment of the

Phi$ippine Is$ands in its dea$ings ,ith the so<a$$ed non<Christian peop$e is said# on argument# to be pratia$$" identia$ ,ith that fo$$o,ed b" the United States 4overnment in its dea$ings ,ith

the Indian tribes. Fa$uab$e $essons# it is insisted# an be derived b" an investigation of the%merian<Indian po$i".

7rom the beginning of the United States# and even before# the Indians have been treated as @in a

state of pupi$age.@ The reognized re$ation bet,een the 4overnment of the United States and the

Indians ma" be desribed as that of guardian and ,ard. It is for the Congress to determine ,henand ho, the guardianship sha$$ be terminated. The Indians are a$,a"s sub9et to the p$enar"

authorit" of the United States.)B/

! ! !.

%s to the seond point# the fats in the Standing 2ear ase and the Rubi ase are not e!at$"identia$. 2ut even admitting simi$arit" of fats# "et it is -no,n to a$$ that Indian reservations do

e!ist in the United States# that Indians have been ta-en from different parts of the ountr" and

p$aed on these reservations# ,ithout an" previous onsu$tation as to their o,n ,ishes# and that#

,hen one so $oated# the" have been made to remain on the reservation for their o,n good andfor the genera$ good of the ountr". If an" $esson an be dra,n from the Indian po$i" of the

United States# it is that the determination of this po$i" is for the $egis$ative and e!eutive

branhes of the government and that ,hen one so deided upon# the ourts shou$d not interfereto upset a arefu$$" p$anned governmenta$ s"stem. Perhaps# 9ust as man" forefu$ reasons e!ist

for the segregation of the 3anguianes in 3indoro as e!isted for the segregation of the different

Indian tribes in the United States.@)B'

Ru+i app$ied the onept of Indian $and grants or reservations in the Phi$ippines. %n Indianreservation is a part of the pub$i domain set apart b" proper authorit" for the use and oupation

of a tribe or tribes of Indians.)B It ma" be set apart b" an at of Congress# b" treat"# or b"

e!eutive order# but it annot be estab$ished b" ustom and presription.)BB

of 51


















Indan 9e o 9and, o<e>er, / no 9med o 9and :ran/ or re/er>aon/. I a9/o co>er/ e

=abor:na9 r: o o//e//on or occ7anc.=)B8 The aborigina$ right of possession depends

on the atua$ oupan" of the $ands in 0uestion b" the tribe or nation as their anestra$ home# inthe sense that suh $ands onstitute definab$e territor" oupied e!$usive$" b" the partiu$ar

tribe or nation.)B( It is a right ,hih e!ists apart from an" treat"# statute# or other governmenta$

ation# a$though in numerous instanes treaties have been negotiated ,ith Indian tribes#reognizing their aborigina$ possession and de$imiting their oupan" rights or sett$ing and

ad9usting their boundaries.)B&

Amercan ;7r/r7dence reco:ne/ e Indan/4 or na>e Amercan/4 r:/ o 9and e

a>e e9d and occ7ed beore e =d/co>er= o e Amerca/ b e E7roean/. !e

ear9e/ den>e /aemen b e U.S. S7reme Co7r on e na7re o abor:na9 9e

<a/ made n 1823 n Jo/nson 3 %ra/am4s Lessee v. M4Intos/.)B

In Jo/nson# the p$aintiffs $aimed the $and in 0uestion under t,o */+ grants made b" the hiefs of

t,o */+ Indian tribes. The U.S. Supreme Court refused to reognize this onve"ane# the

p$aintiffs being private persons. The on$" onve"ane that ,as reognized ,as that made b" theIndians to the government of the European disoverer. Spea-ing for the ourt# Chief 6ustie

3arsha$$ pointed out that the potentates of the o$d ,or$d be$ieved that the" had made amp$eompensation to the inhabitants of the ne, ,or$d b" besto,ing ivi$ization and Christianit"

upon themA but in addition# said the ourt# the" found it neessar"# in order to avoid onf$iting

sett$ements and onse0uent ,ar# to estab$ish the prinip$e that d/co>er :>e/ 9e o e

:o>ernmen b <o/e /7b;ec/, or b <o/e a7or, e d/co>er <a/ made, a:an/ a99

oer E7roean :o>ernmen/, <c 9e m: be con/7mmaed b o//e//on.)85 The

e!$usion of a$$ other Europeans gave to the nation ma-ing the disover" the so$e right of

a0uiring the soi$ from the natives and estab$ishing sett$ements upon it. %s regards the natives#the ourt further stated that?

@Those re$ations ,hih ,ere to e!ist bet,een the disoverer and the natives ,ere to be regu$ated

b" themse$ves. The rights thus a0uired being e!$usive# no other po,er ou$d interpose bet,eenthem.

In the estab$ishment of these re$ations# the rights of the origina$ naban/ ,ere# in no instane#

entire$" disregardedA but ,ere neessari$"# to a onsiderab$e e!tent# impaired. !e <ere

admed o be e r:79 occ7an/ o e /o9, < a 9e:a9 a/ <e99 a/ ;7/ c9am o rean

o//e//on o , and o 7/e accordn: o er o<n d/creonK but their rights to omp$ete

sovereignt"# as independent nations# ,ere neessari$" diminished# and their po,er to dispose of

the soi$ at their o,n ,i$$# to ,homsoever the" p$eased# ,as denied b" the fundamenta$ prinip$e

that disover" gave e!$usive tit$e to those ,ho made it.

*9e e deren naon/ o E7roe re/eced e r: o e na>e/ a/ occ7an/, e

a//ered e 79mae domnon o be n em/e9>e/K and c9amed and e@erc/ed, a/ a

con/e7ence o / 79mae domnon, a o<er o :ran e /o9, <9e e n o//e//on o

e na>e/. !e/e :ran/ a>e been 7nder/ood b a99 o con>e a 9e o e :ranee/,

/7b;ec on9 o e Indan r: o occ7anc.=)8)

of 51















Thus# the disoverer of ne, territor" ,as deemed to have obtained the e5clusive ri#/t to a0uire

Indian $and and e!tinguish Indian tit$es. On$" to the disoverer< ,hether to Eng$and# 7rane#

Spain or :o$$and< did this right be$ong and not to an" other nation or private person. The merea0uisition of the right nonethe$ess did not e!tinguish Indian $aims to $and. Rather# unti$ the

disoverer# b" purhase or on0uest# e!erised its right# the onerned Indians ,ere reognized

as the @rightfu$ oupants of the soi$# ,ith a $ega$ as ,e$$ as 9ust $aim to retain possession of it.@4rants made b" the disoverer to her sub9ets of $ands oupied b" the Indians ,ere he$d to

onve" a tit$e to the grantees# sub9et on$" to the Indian right of oupan". One the disoverer

purhased the $and from the Indians or on0uered them# it ,as on$" then that the disoverergained an abso$ute tit$e unrestrited b" Indian rights.

The ourt on$uded# in essene# that a grant of Indian $ands b" Indians ou$d not onve" a tit$e

paramount to the tit$e of the United States itse$f to other parties# sa"ing?

@It has never been ontended that the Indian tit$e amounted to nothing. !er r: o o//e//on

a/ ne>er been 7e/oned. !e c9am o :o>ernmen e@end/ o e com9ee 79mae 9e,

car:ed < / r: o o//e//on, and o e e@c97/>e o<er o ac7rn: a r:.=

)8/

It has been said that the histor" of %meria# from its disover" to the present da"# proves the

universa$ reognition of this prinip$e.)8'

The Jo/nson dotrine ,as a ompromise. It proteted Indian rights and their native $ands,ithout having to inva$idate onve"anes made b" the government to man" U.S. itizens.)8

Jo/nson ,as reiterated in the ase of 6orcester v. %eor#ia.)8B In this ase# the State of 4eorgia

enated a $a, re0uiring a$$ ,hite persons residing ,ithin the Chero-ee nation to obtain a $iense

or permit from the 4overnor of 4eorgiaA and an" vio$ation of the $a, ,as deemed a high

misdemeanor. The p$aintiffs# ,ho ,ere ,hite missionaries# did not obtain said $iense and ,erethus harged ,ith a vio$ation of the %t.

The U.S. Supreme Court de$ared the %t as unonstitutiona$ for interfering ,ith the treaties

estab$ished bet,een the United States and the Chero-ee nation as ,e$$ as the %ts of Congressregu$ating interourse ,ith them. It haraterized the re$ationship bet,een the United States

government and the Indians as?

@The Indian nations ,ere# from their situation# neessari$" dependent on some foreign potentate

for the supp$" of their essentia$ ,ants# and for their protetion from $a,$ess and in9uriousintrusions into their ountr". That po,er ,as natura$$" termed their protetor. The" had been

arranged under the protetion of 4reat 2ritainA but the e!tinguishment of the 2ritish po,er intheir neighborhood# and the estab$ishment of that of the United States in its p$ae# $ed natura$$" tothe de$aration# on the part of the Chero-ees# that the" ,ere under the protetion of the United

States# and of no other po,er. The" assumed the re$ation ,ith the United States ,hih had before

subsisted ,ith 4reat 2ritain.

of 51












This re$ation ,as that of a nation $aiming and reeiving the protetion of one more po,erfu$#

not that of individua$s abandoning their nationa$ harater# and submitting as sub9ets to the $a,s

of a master.@)88

It ,as the po$i" of the U.S. government to treat the Indians as nations ,ith distint territoria$

boundaries and reognize their right of oupan" over a$$ the $ands ,ithin their domains. Thus?

@7rom the ommenement of our government Congress has passed ats to regu$ate trade and

interourse ,ith the IndiansA ,hih treat them as nations# respet their rights# and manifest a firm purpose to afford that protetion ,hih treaties stipu$ate. %$$ these ats# and espeia$$" that of

)&5/# ,hih is sti$$ in fore# manifest$" onsider e /e>era9 Indan naon/ a/ d/nc o9ca9

comm7ne/, a>n: errora9 bo7ndare/, <n <c er a7or / e@c97/>e, and

a>n: a r: o a99 e 9and/ <n o/e bo7ndare/, <c / no on9 acno<9ed:ed, b7

:7araneed b e Uned Sae/.

! ! !.

=!e Indan naon/ ad a9<a/ been con/dered a/ d/nc, ndeenden o9ca9

comm7ne/, reann: er or:na9 na7ra9 r:/, a/ e 7nd/7ed o//e//or/ o e /o9

rom me mmemora9, ,ith the sing$e e!eption of that imposed b" irresistib$e po,er# ,hih

e!$uded them from interourse ,ith an" other European potentate than the first disoverer of

the oast of the partiu$ar region $aimed? and this ,as a restrition ,hih those European potentates imposed on themse$ves# as ,e$$ as on the Indians. The ver" term @nation#@ so

genera$$" app$ied to them# means @a peop$e distint from others.@ ! ! !. )8(

The Chero-ee nation# then# is a distint ommunit"# oup"ing its o,n territor"# ,ith boundaries

aurate$" desribed# in ,hih the $a,s of 4eorgia an have no fore# and ,hih the itizens of

4eorgia have no right to enter but ,ith the assent of the Chero-ees themse$ves or in onformit",ith treaties and ,ith the ats of Congress. The ,ho$e interourse bet,een the United States and

this nation is# b" our Constitution and $a,s# vested in the government of the United States.@)8&

The disover" of the %merian ontinent gave tit$e to the government of the disoverer as againsta$$ other European governments. 1esignated as the na-ed fee#)8 this tit$e ,as to be onsummated

b" possession and ,as sub9et to the Indian tit$e of oupan". The disoverer a-no,$edged the

IndiansJ $ega$ and 9ust $aim to retain possession of the $and# the Indians being the origina$inhabitants of the $and. The disoverer nonethe$ess asserted the e!$usive right to a0uire the

IndiansJ $and< either b" purhase# @defensive@ on0uest# or ession< and in so doing# e!tinguish

the Indian tit$e. On$" the disoverer ou$d e!tinguish Indian tit$e beause it a$one asserted

u$timate dominion in itse$f. Thus# ,hi$e the different nations of Europe respeted the rights of thenatives as oupants# the" a$$ asserted the u$timate dominion and tit$e to be in themse$ves.)(5

A/ ear9 a/ e 1? cen7r, became acceed docrne a a9o7: ee 9e o e 9and/

occ7ed b e Indan/ <en e co9on// arr>ed became >e/ed n e /o>ere:n r/ e

d/co>ern: E7roean naon and 9aer e or:na9 13 Sae/ and e Uned Sae/ a r:

o occ7anc n e Indan rbe/ <a/ ne>ere9e// reco:ned. The 7edera$ 4overnment

ontinued the po$i" of respeting the Indian right of oupan"# sometimes a$$ed Indian tit$e#

of 51














,hih it aorded the protetion of omp$ete o,nership.)() 2ut this aborigina$ Indian interest

simp$" onstitutes @permission@ from the ,hites to oup" the $and# and means mere possession

not speifia$$" reognized as o,nership b" Congress.)(/ It is $ear that this right of oupan" based upon aborigina$ possession is not a propert" right.)(' It is vu$nerab$e to affirmative ation

b" the federa$ government ,ho# as sovereign# possessed e!$usive po,er to e!tinguish the right

of oupan" at ,i$$.)(

!7/, abor:na9 9e / no e /ame a/ 9e:a9 9e. %borigina$ tit$erests on atua$# e!$usive and ontinuous use and oupan" for a $ong time.)(B It entai$s that $and

o,ned b" Indian tit$e must be used ,ithin the tribe# sub9et to its $a,s and ustoms# and annot

be so$d to another sovereign government nor to an" itizen.)(8 Suh tit$e as Indians have to possess and oup" $and is in the tribe# and not in the individua$ IndianA the right of individua$

Indians to share in the triba$ propert" usua$$" depends upon triba$ membership# the propert" of

the tribe genera$$" being he$d in ommuna$ o,nership.)((

%s a ru$e# Indian $ands are not in$uded in the term @pub$i $ands#@ ,hih is ordinari$" used todesignate suh $ands as are sub9et to sa$e or other disposa$ under genera$ $a,s.)(& Indian $and

,hih has been abandoned is deemed to fa$$ into the pub$i domain.)( On the other hand# an

Indian reservation is a part of the pub$i domain set apart for the use and oupation of a tribe ofIndians.)&5 One set apart b" proper authorit"# the reservation eases to be pub$i $and# and unti$

the Indian tit$e is e!tinguished# no one but Congress an initiate an" preferentia$ right on# or

restrit the nationJs po,er to dispose of# them.)&)

!e Amercan ;7dcar /r7::9ed or more an 200 ear/ < e ance/ra9 9and c9am/ o

nd:eno7/ Amercan/.)&/ %nd t,o things are $ear. #r/# aborigina$ tit$e is reognized. Second#

indigenous propert" s"stems are a$so reognized. 7rom a $ega$ point of vie,# ertain benefits an

be dra,n from a omparison of Phi$ippine IPs to native %merians.)&' 1espite the simi$arities

bet,een native tit$e and aborigina$ tit$e# ho,ever# there are at present some misgivings on,hether 9urisprudene on %merian Indians ma" be ited authoritative$" in the Phi$ippines. The

U.S. reognizes the possessor" rights of the Indians over their $andA tit$e to the $and# ho,ever# isdeemed to have passed to the U.S. as suessor of the disoverer. The aborigina$ tit$e ofo,nership is not speifia$$" reognized as o,nership b" ation authorized b" Congress.)& The

protetion of aborigina$ tit$e mere$" guards against enroahment b" persons other than the

7edera$ 4overnment.)&B %$though there are ritiisms against the refusa$ to reognize the native%meriansJ o,nership of these $ands#)&8 the po,er of the State to e!tinguish these tit$es has

remained firm$" entrenhed.)&(

Under the IPR%# the Phi$ippine State is not barred form asserting sovereignt" over the anestra$

domains and anestra$ $ands.)&& The IPR%# ho,ever# is sti$$ in its infan" and an" simi$arities bet,een its app$iation in the Phi$ippines vis<<vis %merian 6urisprudene on aborigina$ tit$e

,i$$ depend on the peu$iar fats of eah ase.

*+ Kh" the Cario dotrine is uni0ue

In the Phi$ippines# the onept of native tit$e first uphe$d in Cari$o and enshrined in the IPR%grants o,nership# a$beit in $imited form# of the $and to the ICCs;IPs. Native tit$e presumes that

the $and is private and ,as never pub$i. Cari$o / e on9 ca/e a /ecca99 and

cae:orca99 reco:ne/ na>e 9e. !e 9on: 9ne o ca/e/ cn: Cari$o dd no o7c on

of 51











































na>e 9e and e r>ae caracer o ance/ra9 doman/ and 9and/. Cari$o <a/ ced b

e /7cceedn: ca/e/ o /7or e conce o ac7/>e re/cron 7nder e 7b9c

&and Ac <c / a deren maer a9o:eer. Under the Pub$i Land %t# $and sought to beregistered must be 7b9c a:rc797ra9 9and. Khen the onditions speified in Setion & Db of

the Pub$i Land %t are omp$ied ,ith# the possessor of the $and is deemed to have a0uired# b"

operation of $a,# a right to a grant of the $and.)&

The $and eases to be part of the pub$idomain#)5 ipso jure#)) and is onverted to private propert" b" the mere $apse or omp$etion of

the presribed statutor" period.

It ,as on$" in the ase of / C/o v. *irector o2 Lands)/ that the ourt de$ared that the ru$e that

a$$ $ands that ,ere not a0uired from the government# either b" purhase or grant# be$ong to the pub$i domain has an e!eption. This e!eption ,ou$d be an" $and that shou$d have been in the

possession of an oupant and of his predeessors<in<interest sine time immemoria$. It is this

-ind of possession that ,ou$d 9ustif" the presumption that the $and had never been part of the pub$i domain or that it had been private propert" even before the Spanish on0uest.)' / C/o#

ho,ever# ,as deided under the provisions of the Pub$i Land %t and Cari$o ,as ited to

support the app$iantJs $aim of a0uisitive presription under the said %t.

%$$ these "ears# Cari$o had been 0uoted out of onte!t simp$" to 9ustif" $ong# ontinuous# openand adverse possession in the onept of o,ner of pub$i agriu$tura$ $and. It is this $ong#

ontinuous# open and adverse possession in the onept of o,ner of thirt" "ears both for ordinar"

itizens) and members of the nationa$ u$tura$ minorities)B that onverts the $and from pub$iinto private and entit$es the registrant to a torrens ertifiate of tit$e.

3J !e Oon o Sec7rn: a !orren/ !9e o e Ance/ra9 &and Indcae/ a e &and /

r>ae.

The private harater of anestra$ $ands and domains as $aid do,n in the IPR% is further/ren:ened b" the option given to individua$ ICCs;IPs over their individua$$"<o,ned anestra$

9and/. #or 7ro/e/ o re:/raon 7nder e 7b9c &and Ac and e &and Re:/raon

Ac, e IRA e@re//9 con>er/ ance/ra9 9and no 7b9c a:rc797ra9 9and <c ma be

d/o/ed o b e Sae. !e nece//ar m9caon / a ancestral land is private. I,

o<e>er /as to +e 2irst converted to pu+lic a#ricultural land simply 2or re#istration purposes.

To ,it?

@#e!. 12. ption to #e!ure (ertifi!ate of Title /nder (oonwealth 0!t 141, as aended, or the

Land Registration 0!t 4 < Individua$ members of u$tura$ ommunities# ,ith respet to theirindividua$$"<o,ned anestra$ $ands ,ho# b" themse$ves or through their predeessors<in<interest#

have been in ontinuous possession and oupation of the same in the onept of o,ner sine

time immemoria$ or for a period of not $ess than thirt" *'5+ "ears immediate$" preeding theapprova$ of this %t and unontested b" the members of the same ICCs;IPs sha$$ have the option

to seure tit$e to their anestra$ $ands under the provisions of Common,ea$th %t ))# as

amended# or the Land Registration %t 8.

7or this purpose# said individua$$"<o,ned anestra$ $ands# ,hih are agriu$tura$ in harater andatua$$" used for agriu$tura$# residentia$# pasture# and tree farming purposes# in$uding those

of 51




















,ith a s$ope of eighteen perent *)&+ or more# are hereb" $assified as a$ienab$e and disposab$e

agriu$tura$ $ands.

The option granted under this setion sha$$ be e!erised ,ithin t,ent" */5+ "ears from theapprova$ of this %t.@)8

ICCs;IPs are given the option to seure a torrens ertifiate of tit$e over their individua$$"<o,ned

anestra$ $ands. This option is $imited to anestra$ 9and/ on$"# not domains# and suh $ands must

be individua$$"# not ommuna$$"# o,ned.

Ance/ra9 9and/ that are o,ned b" individua$ members of ICCs;IPs ,ho# b" themse$ves orthrough their predeessors<in<interest# have been in ontinuous possession and oupation of the

same in the onept of o,ner sine time immemoria$)( or for a period of not $ess than '5 "ears#

,hih $aims are unontested b" the members of the same ICCs;IPs# ma" be registered underC.%. ))# other,ise -no,n as the Pub$i Land %t# or %t 8# the Land Registration %t. 7or

purposes of registration# the individua$$"<o,ned anestra$ $ands are $assified as a$ienab$e and

disposab$e agriu$tura$ $ands of the pub$i domain# provided# the" are agriu$tura$ in haraterand are atua$$" used for agriu$tura$# residentia$# pasture and tree farming purposes. These $ands

sha$$ be $assified as pub$i agriu$tura$ $ands regard$ess of ,hether the" have a s$ope of )& or

more.

The $assifiation of anestra$ $and as pub$i agriu$tura$ $and is in omp$iane ,ith there0uirements of the Pub$i Land %t and the Land Registration %t. C.%. ))# the Pub$i Land

%t# dea$s speifia$$" ,ith $ands of the pub$i domain.)& Its provisions app$" to those $ands

@de$ared open to disposition or onession@ ! ! ! @,hih have not been reserved for pub$i or0uasi<pub$i purposes# nor appropriated b" the 4overnment# nor in an" manner beome private

propert"# nor those on ,hih a private right authorized and reognized b" this %t or an" other

va$id $a, ! ! ! or ,hih having been reserved or appropriated# have eased to be so.@

)

%t 8#the Land Registration %t# a$$o,s registration on$" of private $ands and pub$i agriu$tura$ $ands.

Snce ance/ra9 doman/ and 9and/ are r>ae, e ICCHI <an/ o a>a9 o e bene/

o C.A. 1F1 and Ac F?6, e IRA /e9 con>er/ / ance/ra9 9and, re:ard9e// o <eer

e 9and a/ a /9oe o e:een er cen 18MJ or o>er,/55 rom r>ae o 7b9c

a:rc797ra9 9and or roer d/o/on.

The option to register $and under the Pub$i Land %t and the Land Registration %t has

nonethe$ess a $imited period. This option must be e!erised ,ithin t,ent" */5+ "ears from

Otober /# )(# the date of approva$ of the IPR%.

!7/, ance/ra9 9and/ and ance/ra9 doman/ are no ar o e 9and/ o e 7b9c doman.!e are r>ae and be9on: o e ICC/HI/. Secon 3 o Arc9e II on Nationa$ Eonom"

and Patrimon" of the )&( Constitution $assifies $ands of the pub$i domain into four ategories?

*a+ agriu$tura$# *b+ forest or timber# *+ minera$ $ands# and *d+ nationa$ par-s. Secon 5 of the

/ame Arc9e II mentions anestra$ $ands and anestra$ domains but it does not $assif" them

under an" of the said four ategories. !o c9a// em a/ 7b9c 9and/ 7nder an one o e

o7r c9a//e/ <99 render e enre IRA 9a< a n799. The spirit of the IPR% $ies in the distintonept of anestra$ domains and anestra$ $ands. The IPR% addresses the ma9or prob$em of the

of 51















ICCs;IPs ,hih is $oss of $and. Land and spae are of vita$ onern in terms of sheer surviva$ of

the ICCs;IPs./5)

!e 1?8 Con/7on mandae/ e Sae o =roec e r:/ o nd:eno7/ c797ra9

comm7ne/ o er ance/ra9 9and/= and a =Con:re// ro>de or e a9cab9 o

c7/omar 9a</ @ @ @ n deermnn: e o<ner/ and e@en o ance/ra9 doman.=/5/

I /e reco:non o e ICC/HI/ d/nc r:/ o o<ner/ o>er er ance/ra9 doman/

and 9and/ a breae/ 9e no / con/7ona9 mandae.

'. !e r: o o<ner/ and o//e//on b e ICC/HI/ o er ance/ra9 doman/ / a

9med orm o o<ner/ and doe/ no nc97de e r: o a9enae e /ame.

Registration under the Pub$i Land %t and Land Registration %t reognizes the onept of

o,nership under the c>9 9a<. This o,nership is based on adverse possession for a speified period# and har-ens to Setion of the Pub$i Land %t on administrative $ega$ization *free

patent+ of imperfet or inomp$ete tit$es and Setion & *b+ and *+ of the same %t on the

9udiia$ onfirmation of imperfet or inomp$ete tit$es. Thus?

@#e!. 44. %n" natura$<born itizen of the Phi$ippines ,ho is not the o,ner of more than t,ent"<four hetares and ,ho sine 6u$" fourth# )/8 or prior thereto# has ontinuous$" oupied and

u$tivated# either b" himse$f or through his predeessors<in<interest# a trat or trats of

agriu$tura$ pub$i $ands sub9et to disposition# or ,ho sha$$ have paid the rea$ estate ta! thereon,hi$e the same has not been oupied b" an" person sha$$ be entit$ed# under the provisions of this

hapter# to have a free patent issued to him for suh trat or trats of suh $and not to e!eed

t,ent"<four hetares.

A member o e naona9 c797ra9 mnore/ <o a/ conn7o7/9 occ7ed and

c79>aed, eer b m/e9 or ro7: / redece//or/nnere/, a rac or rac/ o9and, <eer d/o/ab9e or no /nce )79 F, 1?55, /a99 be en9ed o e r: :raned n

e recedn: ara:ra o / /econ Provided , !a a e me e 9e/ / ree aen

a9caon e / no e o<ner o an rea9 roer /ec7red or d/o/ab9e 7nder e

ro>/on o e 7b9c &and &a<./5'

! ! !.

@#e!. 4$. The fo$$o,ing desribed itizens of the Phi$ippines# oup"ing $ands of the pub$i

domain or $aiming to o,n an" suh $ands or an interest therein# but ,hose tit$es have not been perfeted or omp$eted# ma" app$" to the Court of 7irst Instane of the provine ,here the $and

is $oated for onfirmation of their $aims and the issuane of a ertifiate of tit$e therefor# underthe Land Registration %t# to ,it?

*a+ Dperfetion of Spanish tit$es !!!.

*b+ Those ,ho b" themse$ves or through their predeessors<in<interest have been in open#

ontinuous# e!$usive# and notorious possession and oupation of agriu$tura$ $ands of

the pub$i domain# under a bona fide $aim of a0uisition or o,nership# for at $east thirt"

of 51









"ears immediate$" preeding the fi$ing of the app$iation for onfirmation of tit$e e!ept

,hen prevented b" ,ar or fore ma9eure. These sha$$ be on$usive$" presumed to have

performed a$$ the onditions essentia$ to a 4overnment grant and sha$$ be entit$ed to aertifiate of tit$e under the provisions of this Chapter.

cJ %ember/ o e naona9 c797ra9 mnore/ <o b em/e9>e/ or ro7: erredece//or/nnere/ a>e been n oen, conn7o7/, e@c97/>e and nooro7/

o//e//on and occ7aon o 9and/ o e 7b9c doman /7ab9e o a:rc797re,

<eer d/o/ab9e or no, 7nder a bona de c9am o o<ner/ or a 9ea/ 30 ear/

/a99 be en9ed o e r:/ :raned n /7b/econ bJ ereo.= /5

Registration under the foregoing provisions presumes that the $and ,as origina$$" pub$iagriu$tura$ $and but beause of adverse possession sine 6u$" # )BB *free patent+ or at $east

thirt" "ears *9udiia$ onfirmation+# the $and has beome private. Open# adverse# pub$i and

ontinuous possession is suffiient# provided# the possessor ma-es proper app$iation therefor.

The possession has to be onfirmed 9udiia$$" or administrative$" after ,hih a torrens tit$e is

issued.

% torrens tit$e reognizes the o,ner ,hose name appears in the ertifiate as entit$ed to a$$ the

rights of o,nership under the c>9 9a<. The Civi$ Code of the Phi$ippines defines o,nership in

%rti$es /(# /& and /. This onept is based on Roman La, ,hih the Spaniards introduedto the Phi$ippines through the Civi$ Code of )&&. O,nership# under Roman La,# ma" be

e!erised over things or rights. It primari$" in$udes the right of the o,ner to en9o" and dispose

of the thing o,ned. %nd the right to en9o" and dispose of the thing in$udes the right to reeivefrom the thing ,hat it produes#/5B the right to onsume the thing b" its use#/58 the right to

a$ienate# enumber# transform or even destro" the thing o,ned#/5( and the right to e!$ude from

the possession of the thing o,ned b" an" other person to ,hom the o,ner has not transmitted

suh thing.

/5&

1. !e Ind:eno7/ Conce o O<ner/ and C7/omar &a<.

O,nership of anestra$ domains b" native tit$e does not entit$e the ICC;IP to a torrens tit$e but to

a Certifiate of %nestra$ 1omain Tit$e *C%1T+. The C%1T forma$$" reognizes the nd:eno7/

onept of o,nership of the ICCs;IPs over their anestra$ domain. Thus?

@#e!. 3. Indigenous !on!ept of ownership.< Indigenous onept of o,nership sustains the vie,

that anestra$ domains and a$$ resoures found therein sha$$ serve as the materia$ bases of their

u$tura$ integrit". The indigenous onept of o,nership genera$$" ho$ds that anestra$ domains

are the ICCs;IPs private but ommunit" propert" ,hih be$ongs to a$$ generations and thereforeannot be so$d# disposed or destro"ed. It $i-e,ise overs sustainab$e traditiona$ resoure rights.@

!e r: o o<ner/ and o//e//on o e ICC/HI/ o er ance/ra9 doman/ / e9d

7nder e nd:eno7/ conce o o<ner/. !/ conce manan/ e >e< a ance/ra9

doman/ are e ICC/HI/ r>ae b7 comm7n roer. I / r>ae /m9 beca7/e /

no ar o e 7b9c doman. '7 / r>ae caracer end/ ere. !e ance/ra9 doman /

o<ned n common b e ICC/HI/ and no b one arc79ar er/on. The IPR% itse$f

of 51













provides that areas ,ithin the anestra$ domains# ,hether de$ineated or not# are presumed to be

ommuna$$" he$d./5 !e/e comm7na9 r:/, o<e>er, are no e@ac9 e /ame a/ co

o<ner/ r:/ 7nder e C>9 Code./)5 Co<o,nership gives an" o<o,ner the right todemand partition of the propert" he$d in ommon. The Civi$ Code e!press$" provides that @no

o<o,ner sha$$ be ob$iged to remain in the o<o,nership.@ Eah o<o,ner ma" demand at an"

time the partition of the thing in ommon# insofar as his share is onerned./))

To a$$o, suh aright over anestra$ domains ma" be destrutive not on$" of ustomar" $a, of the ommunit" but

of the ver" ommunit" itse$f./)/

Comm7na9 r:/ o>er 9and are no e /ame a/ cororae r:/ o>er rea9 roer, m7c

9e// cororae condomn7m r:/. % orporation an e!ist on$" for a ma!imum of fift" *B5+"ears sub9et to an e!tension of another fift" "ears in an" sing$e instane./)' Ever" sto-ho$der

has the right to disassoiate himse$f from the orporation./) 3oreover# the orporation itse$f ma"

be disso$ved vo$untari$" or invo$untari$"./)B

Comm7na9 r:/ o e 9and are e9d no on9 b e re/en o//e//or/ o e 9and b7

e@end/ o a99 :eneraon/ o e ICC/HI/, a/, re/en and 77re, o e doman. This isthe reason ,h" the anestra$ domain must be -ept ,ithin the ICCs;IPs themse$ves. The domain

annot be transferred# so$d or onve"ed to other persons. It be$ongs to the ICCs;IPs as aommunit".

Ance/ra9 9and/ are a9/o e9d 7nder e nd:eno7/ conce o o<ner/. The $ands are

ommuna$. These $ands# ho,ever# ma" be transferred sub9et to the fo$$o,ing $imitations? *a+

on$" to the members of the same ICCs;IPsA *b+ in aord ,ith ustomar" $a,s and traditionsA and*+ sub9et to the right of redemption of the ICCs;IPs for a period of )B "ears if the $and ,as

transferred to a non<member of the ICCs;IPs.

7o$$o,ing the onstitutiona$ mandate that @ustomar" $a, govern propert" rights or re$ations indetermining the o,nership and e!tent of anestra$ domains#@/)8 e IRA, b 9e:/9a>e a,

nrod7ce/ a ne< conce o o<ner/. !/ / a conce a a/ 9on: e@/ed 7nder

c7/omar 9a<./)(

C7/om, rom <c c7/omar 9a< / der>ed, / a9/o reco:ned 7nder e C>9 Code a/ a

/o7rce o 9a<./)& Some arti$es of the Civi$ Code e!press$" provide that ustom shou$d beapp$ied in ases ,here no oda$ provision is app$iab$e. /) In other ,ords# in the absene of an"

app$iab$e provision in the Civi$ Code# ustom# ,hen du$" proven# an define rights and

$iabi$ities.//5

C7/omar 9a< is a rmar# not seondar"# soure of rights under the IPR% and uni0ue$"app$ies to ICCs;IPs. I/ reco:non doe/ no deend on e ab/ence o a /ecc ro>/on n

e c>9 9a<. The indigenous onept of o,nership under ustomar" $a, is speifia$$"

a-no,$edged and reognized# and oe!ists ,ith the ivi$ $a, onept and the $a,s on $andtit$ing and $and registration.//)

To be sure# e nd:eno7/ conce o o<ner/ e@// e>en <o7 a aer 9e. The C%1T

is mere$" a @forma$ reognition@ of native tit$e. This is $ear from Setion )) of the IPR%# to ,it?

of 51
































@#e!. 11. Re!ognition of 0n!estral oain Rights.< The rights of ICCs;IPs to their anestra$

domains b" virtue of Native Tit$e sha$$ be reognized and respeted. 7orma$ reognition# ,hen

so$iited b" ICCs;IPs onerned sha$$ be embodied in a Certifiate of %nestra$ 1omain Tit$e#,hih sha$$ reognize the tit$e of the onerned ICCs;IPs over the territories identified and

de$ineated.@

The mora$ import of anestra$ domain# native $and or being native is @be$ongingness@ to the $and#

being peop$e of the $and< b" sheer fore of having sprung from the $and sine time be"ond rea$$#and the faithfu$ nurture of the $and b" the s,eat of oneJs bro,. This is fide$it" of usufrutuar"

re$ation to the $and< the possession of ste,ardship through perduring# intimate ti$$age# and the

mutua$it" of b$essings bet,een man and $andA from man# are for $andA from the $and# sustenanefor man.///

C. Secon/ aJ, bJ and 5 o e IRA Do No $o9ae e Re:a9an Docrne En/rned

n Secon 2, Arc9e II o e 1?8 Con/7on.

1. !e R:/ o ICC/HI/ O>er !er Ance/ra9 Doman/ and &and/

The IPR% grants the ICCs;IPs severa$ rights over their anestra$ domains and anestra$ $ands.Setion ( provides for the rights over anestra$ doman/?

@#e!. 5. Rights to 0n!estral oains.< The rights of o,nership and possession of ICCs;IPs to

their anestra$ domains sha$$ be reognized and proteted. Suh rights in$ude?

a6 Right of wnership.< The right to $aim o<ner/ o>er 9and/, bode/ o <aer

radona99 and ac7a99 occ7ed b ICC/HI/, /acred 9ace/, radona9 7nn:

and /n: :ro7nd/, and a99 mro>emen/ made b em at an" time ,ithin the

domainsA

+6 Right to evelop Lands and Natural Resour!es.< S7b;ec o Secon 56 ereo, e

r: o de>e9o, conro9 and 7/e 9and/ and errore/ radona99 occ7ed, o<ned,

or 7/edK o mana:e and con/er>e na7ra9 re/o7rce/ <n e errore/ and 7o9d

e re/on/b9e/ or 77re :eneraon/K o bene and /are e ro/ rom

a99ocaon and 79aon o e na7ra9 re/o7rce/ o7nd erenK e r: o

ne:oae e erm/ and condon/ or e e@9oraon o na7ra9 re/o7rce/ n e

area/ or e 7ro/e o en/7rn: eco9o:ca9, en>ronmena9 roecon and e

con/er>aon mea/7re/, 7r/7an o naona9 and c7/omar 9a</K the right to aninformed and inte$$igent partiipation in the formu$ation and imp$ementation of an"

pro9et# government or private# that ,i$$ affet or impat upon the anestra$ domains andto reeive 9ust and fair ompensation for an" damages ,hih the" ma" sustain as a resu$tof the pro9etA and the right to effetive measures b" the government to prevent an"

interferene ,ith# a$ienation and enroahment upon these rightsA@

!6 Right to #ta" in the Territories.< The right to sta" in the territor" and not to be removed

therefrom. No ICCs;IPs ,i$$ be re$oated ,ithout their free and prior informed onsent#nor through an" means other than eminent domain. ! ! !A

of 51





d6 Right in (ase of ispla!eent .< In ase disp$aement ours as a resu$t of natura$

atastrophes# the State sha$$ endeavor to resett$e the disp$aed ICCs;IPs in suitab$e areas

,here the" an have temporar" $ife support s"stems? 7 7 78

e6 Right to Regulate the 9ntr" of :igrants.< Right to regu$ate the entr" of migrant sett$ers

and organizations into their domainsA

f6 Right to #afe and (lean 0ir and ;ater .<7or this purpose# the ICCs;IPs sha$$ have

aess to integrated s"stems for the management of their in$and ,aters and air spaeA

g6 Right to (lai *arts of Reservations.< The right to $aim parts of the anestra$domains ,hih have been reserved for various purposes# e!ept those reserved and

intended for ommon and pub$i ,e$fare and servieA

h6 Right to Resolve (onfli!t .< Right to reso$ve $and onf$its in aordane ,ith

ustomar" $a,s of the area ,here the $and is $oated# and on$" in defau$t thereof sha$$ the

omp$aints be submitted to amiab$e sett$ement and to the Courts of 6ustie ,heneverneessar".@

Setion & provides for the rights over anestra$ 9and/

@#e!. $. Rights to 0n!estral Lands.< The right of o,nership and possession of the ICCs;IPs totheir anestra$ $ands sha$$ be reognized and proteted.

a6 Right to transfer land)propert".< Suh right sha$$ in$ude the right to transfer $and or

propert" rights to;among members of the same ICCs;IPs# sub9et to ustomar" $a,s and

traditions of the ommunit" onerned.

+6 Right to Redeption.< In ases ,here it is sho,n that the transfer of $and;propert"

rights b" virtue of an" agreement or devise# to a non<member of the onerned ICCs;IPs

is tainted b" the vitiated onsent of the ICCs;IPs# or is transferred for an unonsionab$e

onsideration or prie# the transferor ICC;IP sha$$ have the right to redeem the same,ithin a period not e!eeding fifteen *)B+ "ears from the date of transfer.@

Setion ( *a+ defines the ICCs;IPs the r: o o<ner/ over their anestra$ doman/ ,hih

overs *a+ $ands# *b+ bodies of ,ater traditiona$$" and atua$$" oupied b" the ICCs;IPs# *+

sared p$aes# *d+ traditiona$ hunting and fishing grounds# and *e+ a$$ improvements made b"them at an" time ,ithin the domains. The r: o o<ner/ nc97de/ the fo$$o,ing rights? *)+

the right to deve$op $ands and natura$ resouresA *b+ the right to sta" in the territoriesA *+ the rightto resett$ement in ase of disp$aementA *d+ the right to regu$ate the entr" of migrantsA *e+ theright to safe and $ean air and ,aterA *f+ the right to $aim parts of the anestra$ domains as

reservationsA and *g+ the right to reso$ve onf$it in aordane ,ith ustomar" $a,s.

Setion & governs their rights to anestra$ 9and/. Un$i-e o,nership over the anestra$ domains#

Setion & gives the ICCs;IPs a$so the right to transfer the $and or propert" rights to members of

of 51



the same ICCs;IPs or non<members thereof. This is in -eeping ,ith the option given to ICCs;IPs

to seure a torrens tit$e over the anestra$ $ands# but not to domains.

/. The Right of ICCs;IPs to 1eve$op Lands and Natura$ Resoures Kithin the %nestra$ 1omains1oes Not 1eprive the State of O,nership Over the Natura$ Resoures and Contro$ and

Supervision in their 1eve$opment and E!p$oitation.

The Rega$ian dotrine on the o,nership# management and uti$ization of natura$ resoures is

de$ared in Secon 2, Arc9e II o e 1?8 Con/7on# viz?

@#e!. 2. A99 9and/ o e 7b9c doman, <aer/, mnera9/, coa9, ero9e7m, and oer

mnera9 o9/, a99 orce/ o oena9 ener:, /ere/, ore// or mber, <9d9e, 9ora and

a7na, and oer na7ra9 re/o7rce/ are o<ned b e Sae. Kith the e!eption of agriu$tura$

$ands# a$$ other natura$ resoures sha$$ not be a$ienated. !e e@9oraon, de>e9omen, and

79aon o na7ra9 re/o7rce/ /a99 be 7nder e 799 conro9 and /7er>/on o e Sae.

!e Sae ma drec9 7nderae /7c ac>e/, or, ma ener no corod7con, ;on

>en7re, or rod7con/arn: a:reemen/ < #9no cen/, or cororaon/ ora//ocaon/ a 9ea/ /@ er cen7m o <o/e caa9 / o<ned b /7c cen/. Suh

agreements ma" be for a period not e!eeding t,ent"<five "ears# rene,ab$e for not more than

t,ent"<five "ears# and under suh terms and onditions as ma" be provided b" $a,. In ases of

,ater rights for irrigation# ,ater supp$"# fisheries# ,ater supp$"# fisheries# or industria$ uses otherthan the deve$opment of ,ater po,er# benefiia$ use ma" be the measure and $imit of the grant.

The State sha$$ protet the nationJs marine ,ea$th in its arhipe$agi ,aters# territoria$ sea# and

e!$usive eonomi zone# and reserve its use and en9o"ment e!$usive$" to 7i$ipino itizens.

The Congress ma"# b" $a,# a$$o, /ma99/ca9e 79aon o na7ra9 re/o7rce/ b #9no

cen/, as ,e$$ as ooperative fish farming# ,ith priorit" to subsistene fishermen andfish,or-ers in rivers# $a-es# ba"s# and $agoons.

The President ma" enter into agreements ,ith foreign<o,ned orporations invo$ving either

tehnia$ or finania$ assistane for 9ar:e/ca9e e@9oraon, de>e9omen, and 79aon o

mnera9/, ero9e7m, and oer mnera9 o9/ aording to the genera$ terms and onditions

provided b" $a,# based on rea$ ontributions to the eonomi gro,th and genera$ ,e$fare of the

ountr". In suh agreements# the state sha$$ promote the deve$opment and use of $oa$ sientifiand tehnia$ resoures.

The President sha$$ notif" the Congress of ever" ontrat entered into in aordane ,ith this

provision# ,ithin thirt" da"s from its e!eution.@

//'

A99 9and/ o e 7b9c doman and a99 na7ra9 re/o7rce/ ,aters# minera$s# oa$# petro$eum#

and other minera$ oi$s# a$$ fores of potentia$ energ"# fisheries# forests or timber# ,i$d$ife# f$oraand fauna# and other natura$ resoures< are o<ned b e Sae. The Constitution provides that

in the e!p$oration# deve$opment and uti$ization of these natura$ resoures# the State e!erises fu$$

ontro$ and supervision# and ma" underta-e the same in four *+ modes?

of 51





). The State ma" diret$" underta-e suh ativitiesA or

/. The State ma" enter into o<prodution# 9oint venture or prodution<sharing

agreements ,ith 7i$ipino itizens or 0ua$ified orporationsA

'. Congress ma"# b" $a,# a$$o, sma$$<sa$e uti$ization of natura$ resoures b" 7i$ipinoitizensA

. 7or the $arge<sa$e e!p$oration# deve$opment and uti$ization of minera$s# petro$eum and

other minera$ oi$s# the President ma" enter into agreements ,ith foreign<o,ned

orporations invo$ving tehnia$ or finania$ assistane.

A/ o<ner o e na7ra9 re/o7rce/, e Sae / accorded rmar o<er and re/on/b9

n e e@9oraon, de>e9omen and 79aon o e/e na7ra9 re/o7rce/ . The State ma"

diret$" underta-e the e!p$oitation and deve$opment b" itse$f# or# it ma" a$$o, partiipation b"

the private setor through o<prodution#// 9oint venture#//B or prodution<sharing agreements.//8

These agreements ma" be for a period of /B "ears# rene,ab$e for another /B "ears. The State#through Congress# ma" a$$o, the sma$$<sa$e uti$ization of natura$ resoures b" 7i$ipino itizens.

7or the $arge<sa$e e!p$oration of these resoures# speifia$$" minera$s# petro$eum and otherminera$ oi$s# the State# through the President# ma" enter into tehnia$ and finania$ assistane

agreements ,ith foreign<o,ned orporations.

Under the Phi$ippine 3ining %t of )B# *R.%. (/+ and the Peop$eJs Sma$$<Sa$e 3ining %t

of )) *R.%. (5(8+ the three t"pes of agreements# i.e.# o<prodution# 9oint venture or prodution<sharing# ma" app$" to both $arge<sa$e//( and sma$$<sa$e mining.//& @Sma$$<sa$e

mining@ refers to @mining ativities ,hih re$" heavi$" on manua$ $abor using simp$e imp$ements

and methods and do not use e!p$osives or heav" mining e0uipment.@//

E@amnn: e IRA, ere / non: n e 9a< a :ran/ o e ICC/HI/ o<ner/

o>er e na7ra9 re/o7rce/ <n er ance/ra9 doman/. The right of ICCs;IPs in their

anestra$ domains in$udes o<ner/, b7 / =o<ner/= / e@re//9 dened and 9med

n Secon aJ as?

@Se. (. a+ Right of ownership< The right to $aim o,nership over $ands# bodies of ,ater

traditiona$$" and atua$$" oupied b" ICCs;IPs# sared p$aes# traditiona$ hunting and fishing

grounds# and a$$ improvements made b" them at an" time ,ithin the domainsA@

The ICCs;IPs are given the right to $aim o,nership over @$ands# bodies of ,ater traditiona$$"

and atua$$" oupied b" ICCs;IPs# sared p$aes# traditiona$ hunting and fishing grounds# and a$$improvements made b" them at an" time ,ithin the domains.@ It ,i$$ be noted that this

enumeration does not mention bodies of ,ater not oupied b" the ICCs;IPs# minera$s# oa$#

,i$d$ife# f$ora and fauna in the traditiona$ hunting grounds# fish in the traditiona$ fishing grounds#forests or timber in the sared p$aes# et. and a$$ other natura$ resoures found ,ithin the

anestra$ domains. Indeed, e r: o o<ner/ 7nder Secon aJ doe/ no co>er

=<aer/, mnera9/, coa9, ero9e7m and oer mnera9 o9/, a99 orce/ o oena9 ener:,

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/ere/, ore// or mber, <9d9e, 9ora and a7na and a99 oer na7ra9 re/o7rce/=

en7meraed n Secon 2, Arc9e II o e 1?8 Con/7on a/ be9on:n: o e Sae.

The non<in$usion of o,nership b" the ICCs;IPs over the natura$ resoures in Setion (*a+omp$ies ,ith the Rega$ian dotrine.

aJ Secon 1, ar II, R79e III o e Im9emenn: R79e/ Goe/ 'eond e arameer/ o

Sec. aJ o e IRA And / Uncon/7ona9.

The Ru$es Imp$ementing the IPR%/'5 in Setion )# Part II# Ru$e III reads?

@#e!tion 1. Rights of wnership. ICCs;IPs have rights of o,nership over $ands# ,aters# andnatura$ resoures and a$$ improvements made b" them at an" time ,ithin the anestra$ domains;

$ands. These rights sha$$ in$ude# but not $imited to# the right over the fruits# the right to possess#

the right to use# right to onsume# right to e!$ude and right to reover o,nership# and the rights

or interests over $and and natura$ resoures. The right to reover sha$$ be partiu$ar$" app$ied to

$ands $ost through fraud or an" form or vitiated onsent or transferred for an unonsionab$e prie.@

Setion ) of the Imp$ementing Ru$es gives the ICCs;IPs rights of o,nership over @$ands# ,atersand natura$ resoures.@ The term @natura$ resoures@ is not one of those e!press$" mentioned in

Setion ( *a+ of the $a,. Our Constitution and 9urisprudene $ear$" de$are that the right to $aim

o,nership over $and does not neessari$" in$ude the right to $aim o,nership over the natura$

resoures found on or under the $and./') !e IRA /e9 mae/ a d/ncon be<een 9and and

na7ra9 re/o7rce/. Secon aJ /ea/ o e r: o o<ner/ on9 o>er e 9and <n

e ance/ra9 doman. I / Secon/ bJ and 5 o e 9a< a /ea o na7ra9 re/o7rce/,

and e/e ro>/on/, a/ /a99 be d/c7//ed 9aer, do no :>e e ICC/HI/ e r: o

o<ner/ o>er e/e re/o7rce/.

The onstitutiona$it" of Setion )# Part II# Ru$e III of the Imp$ementing Ru$es ,as not

speifia$$" and ategoria$$" ha$$enged b" petitioners. Petitioners atua$$" assai$ the

onstitutiona$it" of the Imp$ementing Ru$es in genera$./'/ Neverthe$ess# to avoid an" onfusion inthe imp$ementation of the $a,# it is neessar" to de$are that the in$usion of @natura$ resoures@

in Setion )# Part II# Ru$e III of the Imp$ementing Ru$es goes be"ond the parameters of Setion (

*b+ of the $a, and is conrar o Secon 2, Arc9e II o e 1?8 Con/7on.

bJ !e Sma99Sca9e U9aon o Na7ra9 Re/o7rce/ In Sec. bJ o e IRA I/ A99o<ed

Under ara:ra 3, Secon 2 o Arc9e II o e Con/7on.

O,nership over natura$ resoures remain ,ith the State and the IPR% in Setion ( *b+ mere$"

grants the ICCs;IPs the right to manage them# vi ?

@Se. ( *b+ Right to 1eve$op Lands and Natura$ Resoures.< Sub9et to Setion B8 hereof# right todeve$op# ontro$ and use $ands and territories traditiona$$" oupied# o,ned# or usedA to manage

and onserve natura$ resoures ,ithin the territories and upho$d the responsibi$ities for future

generationsA to benefit and share the profits from a$$oation and uti$ization of the natura$

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resoures found thereinA the right to negotiate the terms and onditions for the e!p$oration of

natura$ resoures in the areas for the purpose of ensuring eo$ogia$# environmenta$ protetion

and the onservation measures# pursuant to nationa$ and ustomar" $a,sA the right to an informedand inte$$igent partiipation in the formu$ation and imp$ementation of an" pro9et# government or

private# that ,i$$ affet or impat upon the anestra$ domains and to reeive 9ust and fair

ompensation for an" damages ,hih the" ma" sustain as a resu$t of the pro9etA and the right toeffetive measures b" the government to prevent an" interferene ,ith# a$ienation and

enroahment upon these rightsA@

The r: o de>e9o 9and/ and na7ra9 re/o7rce/ under Setion ( *b+ of the IPR% enumerates

the fo$$o,ing rights?

a+ the right to deve$op# ontro$ and use $ands and territories traditiona$$" oupiedA

b+ the right to manage and onserve natura$ resoures ,ithin the territories and upho$d the

responsibi$ities for future generationsA

+ the right to benefit and share the profits from the a$$oation and uti$ization of the

natura$ resoures found thereinA

d+ the right to negotiate the terms and onditions for the e!p$oration of natura$ resoures

for the purpose of ensuring eo$ogia$# environmenta$ protetion and the onservation

measures# pursuant to nationa$ and ustomar" $a,sA

e+ the right to an informed and inte$$igent partiipation in the formu$ation andimp$ementation of an" pro9et# government or private# that ,i$$ affet or impat upon the

anestra$ domains and to reeive 9ust and fair ompensation for an" damages ,hih the"

ma" sustain as a resu$t of the pro9etA

f+ the right to effetive measures b" the government to prevent an" interferene ,ith#a$ienation and enroahment upon these rights./''

O<ner/ o>er e na7ra9 re/o7rce/ n e ance/ra9 doman/ reman/ < e Sae and

e ICC/HI/ are mere9 :raned e r: o =mana:e and con/er>e= em or 77re

:eneraon/, =bene and /are= e ro/ rom er a99ocaon and 79aon, and

=ne:oae e erm/ and condon/ or er e@9oraon= or e 7ro/e o =en/7rn:

eco9o:ca9 and en>ronmena9 roecon and con/er>aon mea/7re/.@ It must be noted that

the right to negotiate the terms and onditions over the natura$ resoures overs on$" their

e!p$oration ,hih must be for the purpose of ensuring eo$ogia$ and environmenta$ protetionof# and onservation measures in the anestra$ domain. It does not e!tend to the e!p$oitation and

deve$opment of natura$ resoures.

Sm9 /aed, e ICC/HI/4 r:/ o>er e na7ra9 re/o7rce/ ae e orm o

mana:emen or /e<ard/. 7or the ICCs;IPs ma" use these resoures and share in the profits

of their uti$ization or negotiate the terms for their e!p$oration. %t the same time# ho,ever# the

ICCs;IPs must ensure that the natura$ resoures ,ithin their anestra$ domains are onserved for

of 51





future generations and that the @uti$ization@ of these resoures must not harm the eo$og" and

environment pursuant to nationa$ and ustomar" $a,s./'

!e 9med r:/ o =mana:emen and 7/e= n Secon bJ m7/ be aen o conem9ae

/ma99/ca9e 79aon o na7ra9 re/o7rce/ a/ d/n:7/ed rom 9ar:e/ca9e. Sma99/ca9e

79aon o na7ra9 re/o7rce/ / e@re//9 a99o<ed n e rd ara:ra o Secon 2,Arc9e II o e Con/7on @in reognition of the p$ight of forest d,e$$ers# go$d panners#

margina$ fishermen and others simi$ar$" situated ,ho e!p$oit our natura$ resoures for their dai$"sustenane and surviva$.@/'B Setion ( *b+ a$so e!press$" mandates the ICCs;IPs to manage and

onserve these resoures and ensure environmenta$ and eo$ogia$ protetion ,ithin the domains#

,hih duties# b" their ver" nature# neessari$" re9et uti$ization in a $arge<sa$e.

cJ !e &ar:eSca9e U9aon o Na7ra9 Re/o7rce/ In Secon 5 o e IRA I/ A99o<ed

Under ara:ra/ 1 and F, Secon 2, Arc9e II o e 1?8 Con/7on.

Setion B( of the IPR% provides?

@#e!. 35. Natural Resour!es within 0n!estral oains.< The ICCs;IPs sha$$ have ror r:/

in the ar>e/n:, e@racon, de>e9omen or e@9oaon o an na7ra9 re/o7rce/ ,ithinthe anestra$ domains. % non<member of the ICCs;IPs onerned ma" be a$$o,ed to ta-e part in

the deve$opment and uti$ization of the natura$ resoures for a period of not e!eeding t,ent"<five

*/B+ "ears rene,ab$e for not more than t,ent"<five */B+ "ears? *rovided # That a forma$ and,ritten agreement is entered into ,ith the ICCs;IPs onerned or that the ommunit"# pursuant to

its o,n deision<ma-ing proess# has agreed to a$$o, suh operation? *rovided finall"# That the

NCIP ma" e!erise visitoria$ po,ers and ta-e appropriate ation to safeguard the rights of theICCs;IPs under the same ontrat.@

Setion B( spea-s of the =ar>e/n:, e@racon, de>e9omen or e@9oaon of natura$resoures ,ithin anestra$ domains@ and @gives the ICCs;IPs Jpriorit" rightsJ therein.@ The terms

=ar>e/n:, e@racon, de>e9omen or e@9oaon= o an na7ra9 re/o7rce/ <n e

ance/ra9 doman/ ob>o7/9 reer o 9ar:e/ca9e 79aon. It is uti$ization not mere$" for

subsistene but for ommeria$ or other e!tensive use that re0uire tehno$og" other than manua$

$abor./'8 The $a, reognizes the probabi$it" of re0uiring a non<member of the ICCs;IPs to

partiipate in the deve$opment and uti$ization of the natura$ resoures and thereb" a$$o,s suh partiipation for a period of not more than /B "ears# rene,ab$e for another /B "ears. This ma" be

done on ondition that a forma$ ,ritten agreement be entered into b" the non<member and

members of the ICCs;IPs.

Setion B( of the IPR% does not give the ICCs;IPs the right to @manage and onserve@ thenatura$ resoures. Instead# the $a, on$" grants the ICCs;IPs @priorit" rights@ in the deve$opment

or e!p$oitation thereof. Priorit" means giving preferene. :aving priorit" rights over the natura$

resoures does not neessari$" mean o,nership rights. The grant of priorit" rights imp$ies thatthere is a superior entit" that o,ns these resoures and this entit" has the po,er to grant

preferentia$ rights over the resoures to ,hosoever itse$f hooses.

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Setion B( is not a repudiation of the Rega$ian dotrine. Rather# it is an affirmation of the said

dotrine that a$$ natura$ resoures found ,ithin the anestra$ domains be$ong to the State. It

inorporates b" imp$iation the Rega$ian dotrine# hene# re0uires that the provision be read inthe $ight of Setion /# %rti$e >II of the )&( Constitution. Inerren: Secon 2, Arc9e II

o e 1?8 Con/7on/'( n re9aon o Secon 5 o IRA, e Sae, a/ o<ner o e/e

na7ra9 re/o7rce/, ma drec9 7nderae e de>e9omen and e@9oaon o e na7ra9re/o7rce/ b /e9, or n e a9erna>e, ma reco:ne e ror r:/ o e ICC/HI/

a/ o<ner/ o e 9and on <c e na7ra9 re/o7rce/ are o7nd b enern: no a co

rod7con, ;on >en7re, or rod7con/arn: a:reemen < em. !e Sae ma

9e</e ener no an o /ad a:reemen/ < a nonmember o e ICC/HI/, <eer

na7ra9 or ;7rdca9, or ener no a:reemen/ < ore:no<ned cororaon/ n>o9>n:

eer ecnca9 or nanca9 a///ance or e 9ar:e/ca9e e@9oraon, de>e9omen and

79aon o mnera9/, ero9e7m, and oer mnera9 o9/, or a99o< /7c nonmember o

arcae n / a:reemen < e ICC/HI/. If the State deides to enter into an agreement

,ith a non<ICC;IP member# the Nationa$ Commission on Indigenous Peop$es *NCIP+ sha$$

ensure that the rights of the ICCs;IPs under the agreement sha$$ be proteted. The agreement

sha$$ be for a period of /B "ears# rene,ab$e for another /B "ears.

To reiterate# in the $arge<sa$e uti$ization of natura$ resoures ,ithin the anestra$ domains# the

State# as o,ner of these resoures# has four *+ options? *)+ it ma"# of and b" itse$f# diret$"

underta-e the deve$opment and e!p$oitation of the natura$ resouresA or */+ it ma" reognize the priorit" rights of the ICCs;IPs b" entering into an agreement ,ith them for suh deve$opment

and e!p$oitationA or *'+ it ma" enter into an agreement ,ith a non<member of the ICCs;IPs#

,hether natura$ or 9uridia$# $oa$ or foreignA or *+ it ma" a$$o, suh non<member to partiipatein the agreement ,ith the ICCs;IPs.

!e r:/ :raned b e IRA o e ICC/HI/ o>er e na7ra9 re/o7rce/ n er

ance/ra9 doman/ mere9 :>e/ e ICC/HI/, a/ o<ner/ and occ7an/ o e 9and on<c e re/o7rce/ are o7nd, e r: o e /ma99/ca9e 79aon o e/e re/o7rce/,

and a e /ame me, a ror n er 9ar:e/ca9e de>e9omen and e@9oaon. Secon

5 doe/ no mandae e Sae o a7omaca99 :>e ror o e ICC/HI/. !e Sae a/

/e>era9 oon/ and / <n / d/creon o coo/e <c oon o 7r/7e. 3oreover#there is nothing in the $a, that gives the ICCs;IPs the right to so$e$" underta-e the $arge<sa$e

deve$opment of the natura$ resoures ,ithin their domains. The ICCs;IPs must underta-e suh

endeavour a$,a"s 7nder State supervision or ontro$. This indiates that the State does not $oseontro$ and o,nership over the resoures even in their e!p$oitation. Setions ( *b+ and B( of the

$a, simp$" give due respet to the ICCs;IPs ,ho# as atua$ oupants of the $and ,here the

natura$ resoures $ie# have traditiona$$" uti$ized these resoures for their subsistene and surviva$.

Neither is the State stripped of o,nership and ontro$ of the natura$ resoures b" the fo$$o,ing provision?

@#e!tion 3. (ertifi!ation *re!ondition.< %$$ departments and other governmenta$ agenies sha$$

heneforth be strit$" en9oined from issuing# rene,ing or granting an" onession# $iense or

$ease# or entering into an" prodution<sharing agreement. ,ithout prior ertifiation from the NCIP that the area affeted does not over$ap ,ith an" anestra$ domain. Suh ertifiation sha$$

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on$" be issued after a fie$d<based investigation is onduted b" the %nestra$ 1omains Offie of

the area onerned? *rovided # That no ertifiation sha$$ be issued b" the NCIP ,ithout the free

and prior informed and ,ritten onsent of the ICCs;IPs onerned? *rovided, further # That nodepartment# government agen" or government<o,ned or <ontro$$ed orporation ma" issue ne,

onession# $iense# $ease# or prodution sharing agreement ,hi$e there is a pending app$iation

for a C%1T? *rovided, finall"# That the ICCs;IPs sha$$ have the right to stop or suspend# inaordane ,ith this %t# an" pro9et that has not satisfied the re0uirement of this onsu$tation

proess.@

Conessions# $ienses# $ease or prodution<sharing agreements for the e!p$oitation of natura$

resoures sha$$ not be issued# rene,ed or granted b" a$$ departments and government agenies,ithout prior ertifiation from the NCIP that the area sub9et of the agreement does not over$ap

,ith an" anestra$ domain. The NCIP ertifiation sha$$ be issued on$" after a fie$d<based

investigation sha$$ have been onduted and the free and prior informed ,ritten onsent of theICCs;IPs obtained. Non<omp$iane ,ith the onsu$tation re0uirement gives the ICCs;IPs the

right to stop or suspend an" pro9et granted b" an" department or government agen".

%s its subtit$e suggests# this provision re0uires as a preondition for the issuane of an"

onession# $iense or agreement over natura$ resoures# that a ertifiation be issued b" the NCIP that the area sub9et of the agreement does not $ie ,ithin an" anestra$ domain. The

provision does not vest the NCIP ,ith po,er over the other agenies of the State as to determine

,hether to grant or den" an" onession or $iense or agreement. It mere$" gives the NCIP theauthorit" to ensure that the ICCs;IPs have been informed of the agreement and that their onsent

thereto has been obtained. Note that the ertifiation app$ies to agreements over natura$ resoures

that do not neessari$" $ie ,ithin the anestra$ domains. 7or those that are found ,ithin the said

domains# Setions (*b+ and B( of the IPR% app$".

$. !(E IRA IS A RECOGNI!ION O# OUR AC!I$E AR!ICIA!ION IN !(EINDIGENOUS IN!ERNA!IONA& %O$E%EN!.

The indigenous movement an be seen as the heir to a histor" of anti<imperia$ism strething ba-

to prehistori times. The movement reeived a massive impetus during the )85Js from t,osoures. 7irst# the deo$onization of %sia and %fria brought into the $ime$ight the possibi$it" of

peop$es ontro$$ing their o,n destinies. Seond# the right of se$f<determination ,as enshrined in

the UN 1e$aration on :uman Rights./'& The rise of the ivi$ rights movement and anti<raism brought to the attention of North %merian Indians# %borigines in %ustra$ia# and 3aori in Ne,

ea$and the possibi$it" of fighting for fundamenta$ rights and freedoms.

In )( and )(B# internationa$ indigenous organizations ,ere founded#/' and during the )&5Js#

indigenous affairs ,ere on the internationa$ agenda. The peop$e of the Phi$ippine Cordi$$era ,erethe first %sians to ta-e part in the internationa$ indigenous movement. It ,as the Cordi$$era

Peop$eJs %$$iane that arried out suessfu$ ampaigns against the bui$ding of the Chio River

1am in )&)<&/ and the" have sine beome one of the best<organized indigenous bodies in the,or$d./5

of 51










Present$"# there is a gro,ing onern for indigenous rights in the internationa$ sene. This ame

as a resu$t of the inreased pub$iit" foused on the ontinuing disrespet for indigenous human

rights and the destrution of the indigenous peop$esJ environment# together ,ith the nationa$governmentsJ inabi$it" to dea$ ,ith the situation./) Indigenous rights ame as a resu$t of both

human rights and environmenta$ protetion# and have beome a part of toda"Js priorities for the

internationa$ agenda.//

Internationa$ institutions and bodies have rea$ized the neessit" of app$"ing po$iies# programsand speifi ru$es onerning IPs in some nations. The Kor$d 2an-# for e!amp$e# first adopted a

po$i" on IPs as a resu$t of the disma$ e!periene of pro9ets in Latin %meria./' The Kor$d

2an- no, see-s to app$" its urrent po$i" on IPs to some of its pro9ets in %sia. This po$i" has provided an inf$uentia$ mode$ for the pro9ets of the %sian 1eve$opment 2an-./

The )&( Phi$ippine Constitution forma$$" reognizes the e!istene of ICCs;IPs and de$ares as a

State po$i" the promotion of their rights ,ithin the frame,or- of nationa$ unit" and

deve$opment./B The IPR% ama$gamates the Phi$ippine ategor" of ICCs ,ith the internationa$

ategor" of IPs#

/8

and is heavi$" inf$uened b" both the Internationa$ Labor Organization *ILO+Convention )8 and the United Nations *UN+ 1raft 1e$aration on the Rights of Indigenous

Peop$es./(

ILO Convention No. )8 is entit$ed the @Convention Conerning Indigenous and Triba$ Peop$esin Independent Countries@/& and ,as adopted on 6une /(# )&. It is based on the Universa$

1e$aration of :uman Rights# the Internationa$ Covenant on Eonomi# Soia$ and Cu$tura$

Rights# the Internationa$ Covenant on Civi$ and Po$itia$ Rights# and man" other internationa$instruments on the prevention of disrimination./ ILO Convention No. )8 revised the

@Convention Conerning the Protetion and Integration of Indigenous and Other Triba$ and

Semi<Triba$ Popu$ations in Independent Countries@ *ILO No. )5(+ passed on 6une /8# )B(.

1eve$opments in internationa$ $a, made it appropriate to adopt ne, internationa$ standards onindigenous peop$es @,ith a vie, to removing the assimi$ationist orientation of the ear$ier

standards#@ and reognizing the aspirations of these peop$es to e!erise ontro$ over their o,ninstitutions# ,a"s of $ife and eonomi deve$opment.@/B5

CONCLUSION

The strugg$e of the 7i$ipinos throughout o$onia$ histor" had been p$agued b" ethni and

re$igious differenes. These differenes ,ere arried over and magnified b" the Phi$ippine

government through the imposition of a nationa$ $ega$ order that is most$" foreign in origin orderivation./B) Large$" unpopu$ist# the present $ega$ s"stem has resu$ted in the a$ienation of a $arge

setor of soiet"# speifia$$"# the indigenous peop$es. The histories and u$tures of the indigenes

are re$evant to the evo$ution of Phi$ippine u$ture and are vita$ to the understanding ofontemporar" prob$ems./B/ It is through the IPR% that an attempt ,as made b" our $egis$ators to

understand 7i$ipino soiet" not in terms of m"ths and biases but through ommon e!perienes in

the ourse of histor". The Phi$ippines beame a demora" a entennia$ ago and thedeo$onization proess sti$$ ontinues. If the evo$ution of the 7i$ipino peop$e into a demorati

soiet" is to tru$" proeed demoratia$$"# i.e.# if the 7i$ipinos as a ,ho$e are to partiipate fu$$"

in the tas- of ontinuing demoratization#/B' it is this CourtJs dut" to a-no,$edge the presene of

of 51































indigenous and ustomar" $a,s in the ountr" and affirm their o<e!istene ,ith the $and $a,s in

our nationa$ $ega$ s"stem.

Kith the foregoing dis0uisitions# I vote to upho$d the onstitutiona$it" of the Indigenous Peop$esRights %t of )(.

cruz vs denr secretary

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