8/10/2019 Cases Sec 1 to 26 RA 6657 http://slidepdf.com/reader/full/cases-sec-1-to-26-ra-6657 1/64 1. NATALIA REALTY VS DAR G.R. No. 103302 August 12, 1993 NATALIA REALTY, INC., AND ESTATE DEVELOPERS AND INVESTORS CORP., petitioners, vs. DEPARTMENT OF AGRARIAN REFORM, SEC. BENAMIN T. LEONG !"# DIR. $ILFREDO LEANO, DAR REGION IV, respondents. Lino M. Patajo for petitioners. The Solicitor General for respondents. BELLOSILLO, J.: Are lands already classified for residential, commercial or indstrial se, as approved !y t"e #osin$ and Land %se Re$latory &oard and its precrsor a$encies 1 prior to 1' (ne 1)**, 2 covered !y R.A. ++', ot"er-ise no-n as t"e /ompre"ensive A$rarian Reform La- of 1)**0 T"is is t"e pivotal isse in t"is petition for certiorari assailin$ t"e Notice of /overa$e 3 of t"e Department of A$rarian Reform over parcels of land already reserved as to-nsite areas !efore t"e enactment of t"e la-. etitioner Natalia Realty, Inc. 2NATALIA, for !revity3 is t"e o-ner of t"ree 243 conti$os parcels of land located in &ana!a, Antipolo, Ri5al, -it" areas of 167.))4 "ectares, 1.467' "ectares and 6.7*7 "ectares, or a total of 16'.77* "ectares, and em!raced in Transfer /ertificate of Title No. 41'6 of t"e Re$ister of Deeds of t"e rovince of Ri5al. 8n 1* April 1)), residential roclamation No. 1+4 set aside 67,416 "ectares of land located in t"e 9nicipalities of Antipolo, San 9ateo and 9ontal!an as to-nsite areas to a!sor! t"e poplation overspill in t"e metropolis -"ic" -ere desi$nated as t"e Ln$sod Silan$an To-nsite. T"e NATALIA properties are sitated -it"in t"e areas proclaimed as to-nsite reservation. Since private lando-ners -ere allo-ed to develop t"eir properties into lo-:cost "osin$ s!divisions -it"in t"e reservation, petitioner Estate Developers and Investors /orporation 2EDI/, for !revity3, as developer of NATALIA properties, applied for and -as $ranted preliminary approval and locational clearances !y t"e #man Settlements Re$latory /ommission. T"e necessary permit for "ase I of t"e s!division pro;ect, -"ic" consisted of 14.641 "ectares, -as issed sometime in 1)*6< % for "ase II, -it" an area of *7,777
This document is posted to help you gain knowledge. Please leave a comment to let me know what you think about it! Share it to your friends and learn new things together.
of 1)**0 T"is is t"e pivotal isse in t"is petition for certiorari assailin$ t"e Notice of
/overa$e 3 of t"e Department of A$rarian Reform over parcels of land already reserved as
to-nsite areas !efore t"e enactment of t"e la-.
etitioner Natalia Realty, Inc. 2NATALIA, for !revity3 is t"e o-ner of t"ree 243 conti$os parcels of land located in &ana!a, Antipolo, Ri5al, -it" areas of 167.))4 "ectares, 1.467'
"ectares and 6.7*7 "ectares, or a total of 16'.77* "ectares, and em!raced in Transfer
/ertificate of Title No. 41'6 of t"e Re$ister of Deeds of t"e rovince of Ri5al.
8n 1* April 1)), residential roclamation No. 1+4 set aside 67,416 "ectares of land
located in t"e 9nicipalities of Antipolo, San 9ateo and 9ontal!an as to-nsite areas to
a!sor! t"e poplation overspill in t"e metropolis -"ic" -ere desi$nated as t"e Ln$sod
Silan$an To-nsite. T"e NATALIA properties are sitated -it"in t"e areas proclaimed as
to-nsite reservation.
Since private lando-ners -ere allo-ed to develop t"eir properties into lo-:cost "osin$
s!divisions -it"in t"e reservation, petitioner Estate Developers and Investors /orporation
2EDI/, for !revity3, as developer of NATALIA properties, applied for and -as $ranted
preliminary approval and locational clearances !y t"e #man Settlements Re$latory
/ommission. T"e necessary permit for "ase I of t"e s!division pro;ect, -"ic" consisted of
14.641 "ectares, -as issed sometime in 1)*6< % for "ase II, -it" an area of *7,777
immediately re$istered its o!;ection to t"e notice of /overa$e.
EDI/ also protested to respondent Director ?ilfredo Leano of t"e DAR Re$ion IV 8ffice
and t-ice -rote "im re=estin$ t"e cancellation of t"e Notice of /overa$e.
8n 1 (anary 1))1, mem!ers of t"e Sama"an n$ 9a$sasaa sa &ndo Antipolo, Inc.
2SA9&A, for t"e !revity3, filed a complaint a$ainst NATALIA and EDI/ !efore t"e DAR
Re$ional Ad;dicator to restrain petitioners from developin$ areas nder cltivation !y
SA9&A mem!ers. ) T"e Re$ional Ad;dicator temporarily restrained petitioners from
proceedin$ -it" t"e development of t"e s!division. etitioners t"en moved to dismiss t"e
complaint< it -as denied. Instead, t"e Re$ional Ad;dicator issed on ' 9arc" 1))1 a ?rit of
reliminary In;nction.
etitioners NATALIA and EDI/ elevated t"eir case to t"e DAR Ad;dication &oard
2DARA&3< "o-ever, on 1+ Decem!er 1))1 t"e DARA& merely remanded t"e case to t"eRe$ional Ad;dicator for frt"er proceedin$s. 9
In t"e interim, NATALIA -rote respondent Secretary of A$rarian Reform reiteratin$ its
re=est to set aside t"e Notice of /overa$e. Neit"er respondent Secretary nor respondent
Director too action on t"e protest:letters, t"s compellin$ petitioners to institte t"is
proceedin$ more t"an a year t"ereafter.
NATALIA and EDI/ !ot" impte $rave a!se of discretion to respondent DAR for incldin$
ndedeveloped portions of t"e Antipolo #ills S!division -it"in t"e covera$e of t"e /ARL.
T"ey ar$e t"at NATALIA properties already ceased to !e a$ricltral lands -"en t"ey -ereinclded in t"e areas reserved !y presidential fiat for t"e to-nsite reservation.
a$ainst petitioners !efore t"e DAR Re$ional Ad;dicator "as not yet terminated. Respondents
conclde, as a conse=ence, t"at petitioners failed to flly e"ast administrative remedies
availa!le to t"em !efore comin$ to cort.
T"e petition is impressed -it" merit. A crsory readin$ of t"e reliminary Approval and
Locational /learances as -ell as t"e Development ermits $ranted petitioners for "ases I, II
and III of t"e Antipolo #ills S!division reveals t"at contrary to t"e claim of p!lic
respondents, petitioners NATALIA and EDI/ did in fact comply -it" all t"e re=irements of
la-.
etitioners first secred favora!le recommendations from t"e Ln$sod Silan$an
Development /orporation, t"e a$ency tased to oversee t"e implementation of t"e
development of t"e to-nsite reservation, !efore applyin$ for t"e necessary permits from t"e
#man Settlements Re$latory
/ommission. 10 And, in all permits $ranted to petitioners, t"e /ommission
stated invaria!ly t"erein t"at t"e applications -ere in >conformance> 11 or >conformity> 12 or
>conformin$> 13 -it" t"e implementin$ Standards, Rles and Re$lations of .D. )'. #ence,
t"e ar$ment of p!lic respondents t"at not all of t"e re=irements -ere complied -it"
cannot !e sstained.
As a matter of fact, t"ere -as even no need for petitioners to secre a clearance or prior
approval from DAR. T"e NATALIA properties -ere -it"in t"e areas set aside for t"eLn$sod Silan$an Reservation. Since residential roclamation No. 1+4 created t"e
to-nsite reservation for t"e prpose of providin$ additional "osin$ to t"e !r$eonin$
poplation of 9etro 9anila, it in effect converted for residential se -"at -ere erst-"ile
a$ricltral lands provided all re=isites -ere met. And, in t"e case at !ar, t"ere -as
compliance -it" all relevant rles and re=irements. Even in t"eir applications for t"e
development of t"e Antipolo #ills S!division, t"e predecessor a$ency of #L%R& noted t"at
petitioners NATALIA and EDI/ complied -it" all t"e re=irements prescri!ed !y .D. )'.
T"e implementin$ Standards, Rles and Re$lations of .D. )' applied to all s!divisions
and condominims in $eneral. 8n t"e ot"er "and, residential roclamation No. 1+4referred only to t"e Ln$sod Silan$an Reservation, -"ic" maes it a special la-. It is a !asic
tenet in stattory constrction t"at !et-een a $eneral la- and a special la-, t"e latter
prevails. 1%
Interestin$ly, t"e 8ffice of t"e Solicitor @eneral does not contest t"e conversion of portions
of t"e Antipolo #ills S!division -"ic" "ave already !een developed. 1& 8f corse, t"is is
contrary to its earlier position t"at t"ere -as no valid conversion. T"e applications for t"e
developed and ndeveloped portions of s!;ect s!division -ere similarly sitated.
/onse=ently, !ot" did not need prior DAR approval.
?e no- determine -"et"er sc" lands are covered !y t"e /ARL. Section B of R.A. ++'
provides t"at t"e /ARL s"all >cover, re$ardless of tenrial arran$ement and commodity
prodced, all p!lic and private a$ricltral lands.> As to -"at constittes >a$ricltral
land,> it is referred to as >land devoted to a$ricltral activity as defined in t"is Act and not
classified as mineral, forest, residential, commercial or industrial land .> 1' T"e deli!erations
of t"e /onstittional /ommission confirm t"is limitation. >A$ricltral lands> are only t"ose
lands -"ic" are >ara!le and sita!le a$ricltral lands> and >do not include commercial,
industrial and residential lands.> 1(
&ased on t"e fore$oin$, it is clear t"at t"e ndeveloped portions of t"e Antipolo #ills
S!division cannot in any lan$a$e !e considered as >a$ricltral lands.> T"ese lots -ere
intended for residential se. T"ey ceased to !e a$ricltral lands pon approval of t"eir
inclsion in t"e Ln$sod Silan$an Reservation. Even today, t"e areas in =estion contined
to !e developed as a lo-:cost "osin$ s!division, al!eit at a snailCs pace. T"is can readily !e
$leaned from t"e fact t"at SA9&A mem!ers even institted an action to restrain petitioners
from continin$ -it" sc" development. T"e enormity of t"e resorces needed for
developin$ a s!division may "ave delayed its completion !t t"is does not detract from t"e
fact t"at t"ese lands are still residential lands and otside t"e am!it of t"e /ARL.
Indeed, lands not devoted to a$ricltral activity are otside t"e covera$e of /ARL. T"ese
inclde lands previosly converted to non:a$ricltral ses prior to t"e effectivity of /ARL !y $overnment a$encies ot"er t"an respondent DAR. In its Revised Rles and Re$lations
@overnin$ /onversion of rivate A$ricltral Lands to Non:A$ricltral %ses, 1) DAR itself
defined >a$ricltral land> t"s
. . . Agricultural lands refers to t"ose devoted to a$ricltral activity as defined in R.A. ++'
and not classified as mineral or forest !y t"e Department of Environment and Natral
Resorces 2DENR3 and its predecessor a$encies, and not classified in town plans and zoning
ordinances as approved ! the "ousing and Land #se $egulator! %oard &"L#$%' and its
preceding competent authorities prior to () *une (+ for residential , commercial or
indstrial se.
Since t"e NATALIA lands -ere converted prior to 1' (ne 1)**, respondent DAR is !ond
!y sc" conversion. It -as t"erefore error to inclde t"e ndeveloped portions of t"e
Antipolo #ills S!division -it"in t"e covera$e of /ARL.
T"is is a petition for pro"i!ition -it" prayer for restrainin$ order andFor preliminary and
permanent in;nction a$ainst t"e #onora!le Secretary of t"e Department of A$rarian Reform for actin$ -it"ot ;risdiction in enforcin$ t"e assailed provisions of R.A. No. ++', ot"er-ise
no-n as t"e /ompre"ensive A$rarian Reform La- of 1)** and in proml$atin$ t"e @idelines
and rocedre Implementin$ rodction and rofit S"arin$ nder R.A. No. ++', insofar as t"esame apply to "erein petitioner, and frt"er from performin$ an act in violation of t"econstittional ri$"ts of t"e petitioner.
As $at"ered from t"e records, t"e factal !ac$rond of t"is case, is as follo-sG
raisin$ of livestoc, poltry and s-ine in its covera$e 2Rollo, p. *73.
8n (anary 6, 1)*), t"e Secretary of A$rarian Reform proml$ated t"e @idelines androcedres Implementin$ rodction and rofit S"arin$ as em!odied in Sections 14 and 46 of
R.A. No. ++' 2Rollo, p. *73.
8n (anary ), 1)*), t"e Secretary of A$rarian Reform proml$ated its Rles and Re$lationsimplementin$ Section 11 of R.A. No. ++' 2/ommercial arms3. 2Rollo, p. *13.
L5 arms, petitioner in t"is case, is a corporation en$a$ed in t"e livestoc and poltry !sinessand to$et"er -it" ot"ers in t"e same !siness alle$edly stands to !e adversely affected !y t"e
enforcement of Section 42!3, Section 11, Section 14, Section 1+2d3 and 1 and Section 46 of R.A.
No. ++' ot"er-ise no-n as /ompre"ensive A$rarian Reform La- and of t"e @idelines androcedres Implementin$ rodction and rofit S"arin$ nder R.A. No. ++' proml$ated on
(anary 6, 1)*) and t"e Rles and Re$lations Implementin$ Section 11 t"ereof as proml$ated
!y t"e DAR on (anary ), 1)*) 2Rollo, pp. 6:4+3.G rd
nconstittional. 9ean-"ile, it is also prayed t"at a -rit of preliminary in;nction or restrainin$order !e issed en;oinin$ p!lic respondents from enforcin$ t"e same, insofar as t"ey are made
to apply to L5 arms and ot"er livestoc and poltry raisers.
T"is /ort in its Resoltion dated (ly B, 1)4) resolved to deny, amon$ ot"ers, L5 armsC prayer for t"e issance of a preliminary in;nction in its 9anifestation dated 9ay 6+, and 41,
1)*). 2Rollo, p. )*3.
Later, "o-ever, t"is /ort in its Resoltion dated A$st 6B, 1)*) resolved to $rant said 9otion
for Reconsideration re$ardin$ t"e in;nctive relief, after t"e filin$ and approval !y t"is /ort of an in;nction !ond in t"e amont of 177,777.77. T"is /ort also $ave de corse to t"e petition
and re=ired t"e parties to file t"eir respective memoranda 2Rollo, p. 11)3.
T"e petitioner filed its 9emorandm on Septem!er +, 1)*) 2Rollo, pp. 141:1+*3.8n Decem!er 66, 1)*), t"e Solicitor @eneral adopted "is /omment to t"e petition as "is
9emorandm 2Rollo, pp. 1*+:1*3.
L5 arms =estions t"e follo-in$ provisions of R.A. ++', insofar as t"ey are made to apply toitG
2a3 Section 42!3 -"ic" incldes t"e >raisin$ of livestoc 2and poltry3> in t"e definition of
>A$ricltral, A$ricltral Enterprise or A$ricltral Activity.>
2!3 Section 11 -"ic" defines >commercial farms> as >private a$ricltral lands devoted to
commercial, livestoc, poltry and s-ine raisin$ . . .>
2c3 Section 14 -"ic" calls pon petitioner to eecte a prodction:s"arin$ plan.
2d3 Section 1+2d3 and 1 -"ic" vest on t"e Department of A$rarian Reform t"e at"ority
to smmarily determine t"e ;st compensation to !e paid for lands covered !y t"e/ompre"ensive A$rarian Reform La-.
2e3 Section 46 -"ic" spells ot t"e prodction:s"arin$ plan mentioned in Section 14
>. . . 2?3"ere!y t"ree percent 24H3 of t"e $ross sales from t"e prodction of sc" lands
are distri!ted -it"in sity 2+73 days of t"e end of t"e fiscal year as compensation tore$lar and ot"er farm-orers in sc" lands over and a!ove t"e compensation t"ey
crrently receiveG rovided, T"at t"ese individals or entities reali5e $ross sales in ecess
of five million pesos per annm nless t"e DAR, pon proper application, determine alo-er ceilin$.
In t"e event t"at t"e individal or entity reali5es a profit, an additional ten 217H3 of t"e
net profit after ta s"all !e distri!ted to said re$lar and ot"er farm-orers -it"in ninety2)73 days of t"e end of t"e fiscal year . . .>
T"e main isse in t"is petition is t"e constittionality of Sections 42!3, 11, 14 and 46 of R.A. No.++' 2t"e /ompre"ensive A$rarian Reform La- of 1)**3, insofar as t"e said la- incldes t"e
raisin$ of livestoc, poltry and s-ine in its covera$e as -ell as t"e Implementin$ Rles and
@idelines proml$ated in accordance t"ere-it".G:crala-
T"e constittional provision nder consideration reads as follo-sG
ARTI/LE III
A@RARIAN AND NAT%RAL RES8%R/ES RE8R9Section B. T"e State s"all, !y la-, ndertae an a$rarian reform pro$ram fonded on t"e
ri$"t of farmers and re$lar farm-orers, -"o are landless, to o-n directly or
collectively t"e lands t"ey till or, in t"e case of ot"er farm-orers, to receive a ;st s"areof t"e frits t"ereof. To t"is end, t"e State s"all encora$e and ndertae t"e ;st
distri!tion of all a$ricltral lands, s!;ect to sc" priorities and reasona!le retention
limits as t"e /on$ress may prescri!e, tain$ into accont ecolo$ical, developmental, or e=ity considerations, and s!;ect to t"e payment of ;st compensation. In determinin$
retention limits, t"e State s"all respect t"e ri$"ts of small lando-ners. T"e State s"all
frt"er provide incentives for volntary land:s"arin$.
>L5 arms contended t"at it does not see t"e nllification of R.A. ++' in its entirety. Infact, it acno-led$es t"e correctness of t"e decision of t"is /ort in t"e case of t"e
Association of Small Lando-ners in t"e "ilippines, Inc. vs. Secretary of A$rarian
Reform [email protected]. *B6, 1B (ly 1)*)3 affirmin$ t"e constittionality of t"e /ompre"ensiveA$rarian Reform La-. It, "o-ever, ar$ed t"at /on$ress in enactin$ t"e said la- "as
transcended t"e mandate of t"e /onstittion, in incldin$ land devoted to t"e raisin$ of
livestoc, poltry and s-ine in its covera$e 2Rollo, p. 1413. Livestoc or poltry raisin$
is not similar to crop or tree farmin$. Land is not t"e primary resorce in t"is ndertain$
and represents no more t"an five percent 2'H3 of t"e total investment of commercial
livestoc and poltry raisers. Indeed, t"ere are many o-ners of residential lands all over t"e contry -"o se availa!le space in t"eir residence for commercial livestoc and
corporations and ot"er commercial livestoc and poltry raisers 2Rollo, p. 173. Landsspport t"e !ildin$s and ot"er amenities attendant to t"e raisin$ of animals and !irds.
T"e se of land is incidental to !t not t"e principal factor or consideration in
prodctivity in t"is indstry. Incldin$ !acyard raisers, a!ot *7H of t"ose incommercial livestoc and poltry prodction occpy five "ectares or less. T"e remainin$
67H are mostly corporate farms 2Rollo, p. 113.
8n t"e ot"er "and, t"e p!lic respondent ar$ed t"at livestoc and poltry raisin$ is em!raced in
t"e term >a$ricltre> and t"e inclsion of sc" enterprise nder Section 42!3 of R.A. ++' is proper. #e cited t"at ?e!sterCs International Dictionary, Second Edition 21)'B3, defines t"e
follo-in$ -ordsG
>A$ricltre t"e art or science of cltivatin$ t"e $rond and raisin$ and "arvestin$
crops, often, incldin$ also, feedin$, !reedin$ and mana$ement of livestoc, tilla$e,"s!andry, farmin$.
It incldes farmin$, "orticltre, forestry, dairyin$, s$armain$ . . .
Livestoc domestic animals sed or raised on a farm, especially for profit.
arm a plot or tract of land devoted to t"e raisin$ of domestic or ot"er animals.> 2Rollo, pp.
*6:*43.
T"e petition is impressed -it" merit.
T"e =estion raised is one of constittional constrction. T"e primary tas in constittional
constrction is to ascertain and t"ereafter assre t"e reali5ation of t"e prpose of t"e framers int"e adoption of t"e /onstittion 2(.9. Ta5on J /o. vs. Land Tenre Administration, 41 S/RA
B14 K1)73.G rd
Ascertainment of t"e meanin$ of t"e provision of /onstittion !e$ins -it" t"e lan$a$e of t"edocment itself. T"e -ords sed in t"e /onstittion are to !e $iven t"eir ordinary meanin$
ecept -"ere tec"nical terms are employed in -"ic" case t"e si$nificance t"s attac"ed to t"em
prevails 2(.9. Ta5on J /o. vs. Land Tenre Administration, 41 S/RA B14 K1)73.
It is $enerally "eld t"at, in constrin$ constittional provisions -"ic" are am!i$os or of do!tfl meanin$, t"e corts may consider t"e de!ates in t"e constittional convention as
t"ro-in$ li$"t on t"e intent of t"e framers of t"e /onstittion. It is tre t"at t"e intent of t"e
convention is not controllin$ !y itself, !t as its proceedin$ -as preliminary to t"e adoption !yt"e people of t"e /onstittion t"e nderstandin$ of t"e convention as to -"at -as meant !y t"e
terms of t"e constittional provision -"ic" -as t"e s!;ect of t"e deli!eration, $oes a lon$ -ay
to-ard eplainin$ t"e nderstandin$ of t"e people -"en t"ey ratified it 2A=ino, (r. v. Enrile, ')
S/RA 1*4 K1)B3.
T"e transcripts of t"e deli!erations of t"e /onstittional /ommission of 1)*+ on t"e meanin$ of
t"e -ord >a$ricltral,> clearly s"o- t"at it -as never t"e intention of t"e framers of t"e
/onstittion to inclde livestoc and poltry indstry in t"e covera$e of t"e constittionally:
mandated a$rarian reform pro$ram of t"e @overnment.
T"e /ommittee adopted t"e definition of >a$ricltral land> as defined nder Section 1++ of R.A. 4*BB, as lad devoted to any $ro-t", incldin$ !t not limited to crop lands, salt!eds,
fis"ponds, idle and a!andoned land 2Record, /8N/89, A$st , 1)*+, Vol. III, p. 113.
T"e intention of t"e /ommittee is to limit t"e application of t"e -ord >a$ricltre.>
/ommissioner (amir proposed to insert t"e -ord >ARA&LE> to distin$is" t"is ind of a$ricltral land from sc" lands as commercial and indstrial lands and residential properties
!ecase all of t"em fall nder t"e $eneral classification of t"e -ord >a$ricltral>. T"is proposal,
"o-ever, -as not considered !ecase t"e /ommittee contemplated t"at a$ricltral lands are
limited to ara!le and sita!le a$ricltral lands and t"erefore, do not inclde commercial,indstrial and residential lands 2Record, /8N/89, A$st , 1)*+, Vol. III, p. 473.
In t"e interpellation, t"en /ommissioner Re$alado 2no- a Spreme /ort (stice3, posed several
=estions, amon$ ot"ers, =oted as follo-sG
>Line 1) refers to $enine reform pro$ram fonded on t"e primary ri$"t of farmers andfarm-orers. I -onder if it means t"at lease"old tenancy is t"ere!y proscri!ed nder t"is
provision !ecase it speas of t"e primary ri$"t of farmers and farm-orers to o-n
directly or collectively t"e lands t"ey till. As also mentioned !y /ommissioner Tadeo,farm-orers inclde t"ose -"o -or in pi$$eries and poltry pro;ects.
I -as -onderin$ -"et"er I am -ron$ in my appreciation t"at if some!ody pts p a
pi$$ery or a poltry pro;ect and for t"at prpose "ires farm-orers t"erein, t"ese
farm-orers -ill atomatically "ave t"e ri$"t to o-n eventally, directly or ltimately or collectively, t"e land on -"ic" t"e pi$$eries and poltry pro;ects -ere constrcted.
2Record, /8N/89, A$st 6, 1)*+, p. +1*3.
T"e =estions -ere ans-ered and eplained in t"e statement of t"en /ommissioner
Tadeo, =oted as follo-sG
>Sa pan$ala-an$ atann$an n$ @inoo ay medyo "indi ami na$ana-aan. Ipinaaalamo ay /ommissioner Re$alado na "indi namin inila$ay an$ a$ricltral -orer sa
dito ay farm -orer aya "indi asama an$ pi$$ery, poltry at livestoc -orers2Record, /8N/89, A$st 6, 1)*+, Vol. II, p. +613.
It is evident from t"e fore$oin$ discssion t"at Section II of R.A. ++' -"ic" incldes >privatea$ricltral lands devoted to commercial livestoc, poltry and s-ine raisin$> in t"e definition
of >commercial farms> is invalid, to t"e etent t"at t"e aforecited a$ro:indstrial activities aremade to !e covered !y t"e a$rarian reform pro$ram of t"e State. T"ere is simply no reason to
inclde livestoc and poltry lands in t"e covera$e of a$rarian reform. 2Rollo, p. 613.
#ence, t"ere is merit in L5 armsC ar$ment t"at t"e re=irement in Sections 14 and 46 of R.A.
++' directin$ >corporate farms> -"ic" inclde livestoc and poltry raisers to eecte and
implement >prodction:s"arin$ plans> 2pendin$ final redistri!tion of t"eir land"oldin$s3
-"ere!y t"ey are called pon to distri!te from t"ree percent 24H3 of t"eir $ross sales and ten
percent 217H3 of t"eir net profits to t"eir -orers as additional compensation is nreasona!le for !ein$ confiscatory, and t"erefore violative of de process 2Rollo, p. 613.G:crala-
It "as !een esta!lis"ed t"at t"is /ort -ill assme ;risdiction over a constittional =estion only
if it is s"o-n t"at t"e essential re=isites of a ;dicial in=iry into sc" a =estion are firstsatisfied. T"s, t"ere mst !e an actal case or controversy involvin$ a conflict of le$al ri$"tssscepti!le of ;dicial determination, t"e constittional =estion mst "ave !een opportnely
raised !y t"e proper party, and t"e resoltion of t"e =estion is navoida!ly necessary to t"e
decision of t"e case itself 2Association of Small Lando-ners of t"e "ilippines, Inc. v. Secretaryof A$rarian Reform, @.R. *B6< Acna v. Arroyo, @.R. )417< a!ico v. (ico, @.R. )BB<
isses, it -ill not "esitate to declare a la- or act invalid -"en it is convinced t"at t"is mst !edone. In arrivin$ at t"is conclsion, its only criterion -ill !e t"e /onstittion and @od as its
conscience $ives it in t"e li$"t to pro!e its meanin$ and discover its prpose. ersonal motives
and political considerations are irrelevancies t"at cannot inflence its decisions. &landis"ment isas ineffectal as intimidation, for all t"e a-esome po-er of t"e /on$ress and Eective, t"e
/ort -ill not "esitate >to mae t"e "ammer fall "eavily,> -"ere t"e acts of t"ese departments, or
of any official, !etray t"e peopleCs -ill as epressed in t"e /onstittion 2Association of Small
Lando-ners of t"e "ilippines, Inc. v. Secretary of A$rarian Reform, @.R. *B6< Acna v.Arroyo, @.R. )417< a!ico v. (ico, @.R. )BB< 9anaay v. (ico, @.R. ), 1B (ly 1)*)3.
T"s, -"ere t"e le$islatre or t"e eective acts !eyond t"e scope of its constittional po-ers, it
!ecomes t"e dty of t"e ;diciary to declare -"at t"e ot"er !ranc"es of t"e $overnment "ad
assmed to do, as void. T"is is t"e essence of ;dicial po-er conferred !y t"e /onstittion >2I3none Spreme /ort and in sc" lo-er corts as may !e esta!lis"ed !y la-> 2Art. VIII, Section 1
of t"e 1)4' /onstittion< Article , Section I of t"e 1)4 /onstittion and -"ic" -as adopted as part of t"e reedom /onstittion, and Article VIII, Section 1 of t"e 1)* /onstittion3 and -"ic" po-er t"is /ort "as eercised in many instances 2Demetria v. Al!a, 1B* S/RA 67* K1)*3.
RE9ISES /8NSIDERED, t"e instant petition is "ere!y @RANTED. Sections 42!3, 11, 14 and
46 of R.A. No. ++' insofar as t"e inclsion of t"e raisin$ of livestoc, poltry and s-ine in its
covera$e as -ell as t"e Implementin$ Rles and @idelines proml$ated in accordancet"ere-it", are "ere!y DE/LARED nll and void for !ein$ nconstittional and t"e -rit of
preliminary in;nction issed is "ere!y 9ADE permanent.
S8 8RDERED.
4. *G.R. No. 139&92. O-to/ &, 2000
REPBLIC OF T4E P4ILIPPINES 5. /6 t7 DEPARTMENT OF AGRARIAN
REFORM, petitioner, vs. 4ON. CORT OF APPEALS !"# GREEN CITY ESTATE
T"is is a petition for revie- !y certiorari of t"e DecisionK1 of t"e /ort of Appeals dated
Decem!er ), 1))* t"at reversed t"e 8rder of petitioner, t"e Department of A$rarian Reform2petitioner DAR3, !y eemptin$ t"e parcels of land of private respondent @reen /ity Estate and
Development /orporation 2private respondent3 from a$rarian reform. Also assailed in t"is instant
petition is t"e Resoltion dated 9ay 11, 1))* issed !y t"e same cort t"at denied t"e 9otion
for Reconsideration of petitioner DAR.
T"e five parcels of land in isse "as a com!ined area of approimately 116.7' "ectares
sitated at &aran$ay nta, 9nicipality of (ala:(ala, rovince of Ri5al, covered !y Transfer
/ertificates of Title Nos. 9:B'*'+, 9:B'*', 9:B'*'*, 9:B'*') and 9:B'*+7 of t"e Re$ister
of Deeds of Ri5al. rivate respondent ac=ired t"e land !y prc"ase on 9ay 6+, 1))B from
9arcela ∨a vda. De Torres. T"e ta declarations classified t"e properties as a$ricltral.
8n (ne 1+, 1))B, petitioner DAR issed a Notice of /overa$e of t"e s!;ect parcels of land
nder complsory ac=isition prsant to Section , /"apter II of R.A. ++' or t"e
/ompre"ensive Land Reform La- of 1))* 2/ARL3.
8n (ly 61, 1))B, private respondent filed -it" t"e DAR Re$ional 8ffice an application for
eemption of t"e land from a$rarian reform, prsant to DAR Administrative 8rder No. +, series
of 1))BK6 and D8( 8pinion No. BB, series of 1))7. Administrative 8rder No. + provides t"e
$idelines for eemption from t"e /ompre"ensive A$rarian Reform ro$ram 2/AR3 covera$e
-"ile D8( 8pinion No. BB, Series of 1))7, at"ori5es t"e DAR to approve conversion of
a$ricltral lands covered !y RA ++'1 to non:a$ricltral ses effective (ne 1' 1)**.
In spport of its application for eemption, private respondent s!mitted t"e follo-in$
docmentsG
1. /ertified p"otocopies of t"e titles and ta declarations.
6. Vicinity and location plans.
4. /ertification of t"e 9nicipal lannin$ and Development /oordinator of t"e 8ffice of t"e
9ayor of (ala:(ala.
B. Resoltion No. R:4+, series of 1)*1 of t"e #L%R&.
'. /ertification from t"e National Irri$ation Administration.
a$ricltral as Mland devoted to a$ricltral activity as defined in t"is Act and not classified as
mineral, forest, residential, commercial or industrial land O.K'
rivate respondent so$"t eemption from t"e covera$e of /ARL on t"e $rond t"at its five
parcels of land are not -"olly a$ricltral. T"e land se map of t"e mnicipality, certified !y t"e
8ffice of t"e 9nicipal lannin$ and Development /oordinator 29D/3 of (ala:(ala and t"e
report of t"e commission constitted !y t"e /ort of Appeals esta!lis"ed t"at t"e properties lie
mostly -it"in t"e residential and forest conservation 5one.
etitioner DAR maintains t"at t"e s!;ect properties "ave already !een classified as
a$ricltral !ased on t"e ta declarations.K+ T"e 8ffice of t"e Solicitor @eneral 28S@3 and
petitioner DAR are one in contendin$ t"at t"e classification of lands once determined !y la-
may not !e varied or altered !y t"e reslts of a mere oclar or aerial inspection.K
?e are na!le to sstain petitioners contention. T"ere is no la- or ;risprdence t"at "olds
t"at t"e land classification em!odied in t"e ta declarations is conclsive and final nor -old
proscri!e any frt"er in=iry. rt"ermore, t"e ta declarations are clearly not t"e sole !asis of
t"e classification of a land. In fact, DAR Administrative 8rder No. + lists ot"er docments, aside
from ta declarations, t"at mst !e s!mitted -"en applyin$ for eemption from /AR.K* In "alili vs. -ourt of AppealsK), -e sstained t"e trial cort -"en it rled t"at t"e classification
made !y t"e Land Re$latory &oard of t"e land in =estion ot-ei$"ed t"e classification stated
in t"e ta declaration. T"e classification of t"e &oard in said case -as more recent t"an t"at of
t"e ta declaration and -as !ased on t"e present condition of t"e property and t"e commnity
t"ereat.K17
In t"is case, t"e /ort of Appeals -as constrained to resort to an oclar inspection of said
properties t"ro$" t"e commission it created considerin$ t"at t"e opinion of petitioner DAR
conflicted -it" t"e land se map s!mitted in evidence !y private respondent. Respondent cort
also noted t"at even from t"e !e$innin$ t"e properties of private respondent "ad no definite
delineation and classification.K11 #ence, t"e srvey of t"e properties t"ro$" t"e cort appointed
commissioners -as t"e ;dicios and e=ita!le soltion to finally resolve t"e isse of land
classification and delineation.
T"e 8S@ stresses t"at to !e eempt from /AR nder D8( 8pinion No. BB, t"e land mst
"ave !een classified as indstrialFresidential !efore (ne 1', 1)**.K16
&ased on t"is premise, t"e8S@ points ot t"at no sc" classification -as presented ecept t"e mnicipalitys alle$ed land
se map in 1)*7 s"o-in$ t"at s!;ect parcels of land fall -it"in t"e mnicipalitys forest
conservation 5one.K14 T"e 8S@ frt"er ar$es t"at assmin$ t"at a c"an$e in t"e se of t"e
s!;ect properties in 1)*7 may ;stify t"eir eemption from /AR nder D8( 8pinion No. BB,
sc" land se of 1)*7 -as, nevert"eless, repealedFamended -"en t"e #L%R& approved t"e
mnicipalitys /ompre"ensive Development lan for &aran$ay nta for t"e years 1)*7 to 6777
t"e petitioners application on t"e $rond t"at t"e to-n plan of t"e mnicipality, particlarly
Ta!le B:B t"ereof, s"o-s t"at &aran$ay nta is intended to remain and to !ecome a pro$ressive
a$ricltral commnity in vie- of t"e a!ndance of fertile a$ricltral areas in t"e !aran$ay, and
t"at t"ere is a discrepancy !et-een t"e land se map -"ic" identifies a "$e forest conservation
5one and t"e land se plan -"ic" "as no area classified as forest conservation.
#o-ever, a closer loo at t"e development plan for t"e mnicipality of (ala:(ala s"o-s t"at Ta!le
B:B does not represent t"e present classification of land in t"at mnicipality, !t t"e proposed
land se to !e ac"ieved. T"e eistin$ land se as of 1)*7 is s"o-n !y Ta!le 4:4, -"erein
&aran$ay nta is s"o-n to "ave a forest area of 4' "ectares and open $rassland 2-"ic" -asformerly forested area3 of '+ "ectares. T"e land se map is consistent -it" t"is.O K1+
9oreover, t"e commissioners report on t"e actal condition of t"e properties confirms t"e
fact t"at t"e properties are not -"olly a$ricltral. In essence, t"e report of t"e commission
s"o-ed t"at t"e land of private respondent consists of a montainos area -it" an avera$e 6*
de$ree slope containin$ ++.' "ectares< a level, nirri$ated area of 4B "ectares of -"ic" ' to +
"ectares are planted to palay< and a residential area of * "ectares. K1 T"e findin$ t"at ++.'
"ectares of t"e 116.7' "ectares of land of private respondent "ave an avera$e slope of 6*
de$rees provides anot"er co$ent reason to eempt t"ese portions of t"e properties from t"e
/ARL. Section 17 of t"e /ARL is clear on t"is point -"en it provides t"at Mall lands -it"ei$"teen percent 21*H3 slope and over, ecept t"ose already developed s"all !e eempt from t"e
covera$e of t"is ActO.
etitioner DAR and t"e 8S@ contest t"e findin$ of t"e /ort of Appeals t"at t"e s!;ect
parcels of land "ave a montainos slope on t"e $rond t"at t"is conclsion -as alle$edly
arrived at in a manner not in accord -it" esta!lis"ed srveyin$ procedres. K1* T"ey also !e-ail
Reform ro$ram 2/AR for !revity3 for distri!tion to =alified !eneficiaries, on t"e $rond of
lac of ;risdiction.
T"is case ori$inated in a complaint filed !y complainants callin$ t"emselves as t"e &idnon
ree armers and A$ricltral La!orers 8r$ani5ation 2&%AL8 for !revity3 nder t"e
leaders"ip of Alvin 8!ri=e and Lis #ermoso a$ainst t"e /9%, !efore t"e Department of
A$rarian Reform for Declaration of Stats as Tenants, nder t"e /AR.
rom t"e records, t"e follo-in$ facts are evident. T"e petitioner, t"e /9%, is an a$ricltral
edcational instittion o-ned and rn !y t"e state located in t"e to-n of 9san, &idnon
province. It started as a farm sc"ool at 9arilan$, &idnon in early 1)17, in response to t"e
p!lic demand for an a$ricltral sc"ool in 9indanao. It epanded into t"e &idnon National
A$ricltral #i$" Sc"ool and -as transferred to its ne- site in 9ana$o near 9alay!alay, t"e
provincial capital of &idnon.
In t"e early 1)+7Cs, it -as converted into a colle$e -it" camps at 9san, ntil it !ecame -"at
is no- no-n as t"e /9%, !t still primarily an a$ricltral niversity. rom its !e$innin$, t"e
sc"ool -as t"e ans-er to t"e cryin$ need for trainin$ people in order to develop t"e a$ricltral
potential of t"e island of 9indanao. T"ose -"o planned and esta!lis"ed t"e sc"ool "ad a vision
as to t"e ftre development of t"at part of t"e "ilippines. 8n (anary 1+, 1)'* t"e resident of
t"e Rep!lic of t"e "ilippines, t"e late /arlos . @arcia, >pon t"e recommendation of t"e
Secretary of A$ricltre and Natral Resorces, and prsant to t"e provisions of Section '4, of
/ommon-ealt" Act No. 1B1, as amended>, issed roclamation No. B+, -it"dra-in$ from sale
or settlement and reservin$ for t"e 9indanao A$ricltral /olle$e, a site -"ic" -old !e t"e
ftre camps of -"at is no- t"e /9%. A total land area comprisin$ 4,7*7 "ectares -assrveyed and re$istered and titled in t"e name of t"e petitioner nder 8/T Nos. 1+7, 1+1 and
1+6. 1
In t"e corse of t"e cadastral "earin$ of t"e sc"oolCs petition for re$istration of t"e
aforementioned $rant of a$ricltral land, several tri!es !elon$in$ to cltral commnities,
opposed t"e petition claimin$ o-ners"ip of certain ancestral lands formin$ part of t"e tri!al
reservations. Some of t"e claims -ere $ranted so t"at -"at -as titled to t"e present petitioner
sc"ool -as redced from 4,B71 "ectares to 4,7*7 "ectares.
In t"e early 1)+7Cs, t"e stdent poplation of t"e sc"ool -as less t"an 4,777. &y 1)**, t"e stdent poplation "ad epanded to some 14,777 stdents, so t"at t"e sc"ool commnity "as an
academic poplation 2stdent, faclty and non:academic staff3 of almost 1',777. To cope -it"
t"e increase in its enrollment, it "as epanded and improved its edcational facilities partly from
$overnment appropriation and partly !y self:"elp measres.
Tre to t"e concept of a land $rant colle$e, t"e sc"ool em!ared on self:"elp measres to carry
ot its edcational o!;ectives, train its stdents, and maintain varios activities -"ic" t"e
$overnment appropriation cold not ade=ately spport or sstain. In 1)*B, t"e /9% approved
Resoltion No. 1+7, adoptin$ a liveli"ood pro$ram called >ilsan$ Sarilin$ Siap ro$ram>
nder -"ic" t"e land resorces of t"e %niversity -ere leased to its faclty and employees. T"is
arran$ement -as covered !y a -ritten contract. %nder t"is pro$ram t"e faclty and staff com!ine
t"emselves to $rops of five mem!ers eac", and t"e /9% provided tec"nical no-:"o-,
practical trainin$ and all inds of assistance, to ena!le eac" $rop to cltivate B to ' "ectares of
land for t"e lo-land rice pro;ect. Eac" $rop pays t"e /9% a service fee and also a land se
participantCs fee. T"e contract pro"i!its participants and t"eir "ired -orers to esta!lis" "oses or
live in t"e pro;ect area and to se t"e cltivated land as a collateral for any ind of loan. It -as
epressly stiplated t"at no landlord:tenant relations"ip eisted !et-een t"e /9% and t"e
faclty andFor employees. T"is particlar pro$ram -as conceived as a mlti:disciplinary applied
researc" etension and prodctivity pro$ram to tili5e availa!le land, train people in modern
a$ricltral tec"nolo$y and at t"e same time $ive t"e faclty and staff opportnities -it"in t"econfines of t"e /9% reservation to earn additional income to a$ment t"eir salaries. T"e
location of t"e /9% at 9san, &idnon, -"ic" is =ite a distance from t"e nearest to-n, -as
t"e proper settin$ for t"e adoption of sc" a pro$ram. Amon$ t"e participants in t"is pro$ram
elayo and ot"er complainants. 8!ri=e -as a "ysics Instrctor at t"e /9% -"ile t"e ot"ers
-ere employees in t"e lo-land rice pro;ect. T"e ot"er complainants -"o -ere not mem!ers of
t"e faclty or non:academic staff /9%, -ere "ired -orers or la!orers of t"e participants in t"is
pro$ram. ?"en petitioner Dr. Leonardo /"a !ecame resident of t"e /9% in (ly 1)*+, "e
discontined t"e a$ri:!siness pro;ect for t"e prodction of rice, corn and s$ar cane no-n as
A$ri:&siness 9ana$ement and Trainin$ ro;ect, de to losses incrred -"ile carryin$ on t"esaid pro;ect. Some /9% personnel, amon$ -"om -ere t"e complainants, -ere laid:off -"en
t"is pro;ect -as discontined. As Assistant Director of t"is a$ri:!siness pro;ect, 8!ri=e -as
fond $ilty of mis"andlin$ t"e /9% fnds and -as separated from service !y virte of
Eective 8rder No. 1, t"e re:or$ani5ation la- of t"e /9%.
Sometime in 1)*+, nder Dr. /"a as resident, t"e /9% lanc"ed a self:"elp pro;ect called
/9%:Income En"ancement ro$ram 2/9%:IE3 to develop ntili5ed land resorces, mo!ili5e
and promote t"e spirit of self:reliance, provide socio:economic and tec"nical trainin$ in actal
field pro;ect implementation and a$ment t"e income of t"e faclty and t"e staff.
%nder t"e terms of a 4:party 9emorandm of A$reement 2 amon$ t"e /9%, t"e /9%:
Inte$rated Development ondation 2/9%:ID3 and $rops or >seldas> of ' /9% employees,
t"e /9% -old provide t"e se of B to ' "ectares of land to a selda for one 213 calendar year.
T"e /9%:ID -old provide researc"ers and specialists to assist in t"e preparation of pro;ect
proposals and to monitor and analy5e pro;ect implementation. T"e selda in trn -old pay to t"e
/9% 177 as service fee and 1,777 per "ectare as participantCs land rental fee. In addition, B77
ilo$rams of t"e prodce per year -old !e trned over or donated to t"e /9%:ID. T"e
participants a$reed not to allo- t"eir "ired la!orers or mem!er of t"eir family to esta!lis" any
"ose or live -it"in vicinity of t"e pro;ect area and not to se t"e allocated lot as collateral for a
loan. It -as epressly provided t"at no tenant:landlord relations"ip -old eist as a reslt of t"e
A$reement.
Initially, participation in t"e /9%:IE -as etended only to -orers and staff mem!ers -"o
-ere still employed -it" t"e /9% and -as not made availa!le to former -orers or employees.
In t"e middle of 1)*, to cs"ion t"e impact of t"e discontinance of t"e rice, corn and s$ar
cane pro;ect on t"e lives of its former -orers, t"e /9% allo-ed t"em to participate in t"e
/9%:IE as special participants.
%nder t"e terms of a contract called Addendm To Eistin$ 9emorandm of A$reement
/oncernin$ articipation To t"e /9%:Income En"ancement ro$ram, 3 a former employee
-old !e $roped -it" an eistin$ selda of "is c"oice and provided one 213 "ectare for a lo-land
rice pro;ect for one 213 calendar year. #e -old pay t"e land rental participantCs fee of 1,777.77
per "ectare !t on a c"ar$e:to:crop !asis. #e -old also !e s!;ect to t"e same pro"i!itions as
t"ose imposed on t"e /9% employees. It -as also epressly provided t"at no tenant:landlord
relations"ip -old eist as a reslt of t"e A$reement.
T"e one:year contracts epired on (ne 47, 1)**. Some contracts -ere rene-ed. T"ose -"ose
contracts -ere not rene-ed -ere served -it" notices to vacate.
T"e non:rene-al of t"e contracts, t"e discontinance of t"e rice, corn and s$ar cane pro;ect, t"e
loss of ;o!s de to termination or separation from t"e service and t"e alle$ed "arassment !ysc"ool at"orities, all contri!ted to, and precipitated t"e filin$ of t"e complaint.
8n t"e !asis of t"e a!ove facts, t"e DARA& fond t"at t"e private respondents -ere not tenants
and cannot t"erefore !e !eneficiaries nder t"e /AR. At t"e same time, t"e DARA& ordered
t"e se$re$ation of B77 "ectares of sita!le, compact and conti$os portions of t"e /9% land
and t"eir inclsion in t"e /AR for distri!tion to =alified !eneficiaries.
T"e petitioner /9%, in seein$ a revie- of t"e decisions of t"e respondents DARA& and t"e
/ort of Appeals, raised t"e follo-in$ issesG
1.3 ?"et"er or not t"e DARA& "as ;risdiction to "ear and decide /ase No. 77' for Declaration
of Stats of Tenants and covera$e of land nder t"e /AR.
6.3 ?"et"er or not respondent /ort of Appeals committed serios errors and $rave a!se of
discretion amontin$ to lac of ;risdiction in dismissin$ t"e etition for Revie-
on -ertiorari and affirmin$ t"e decision of DARA&.
tenant relations"ip eisted, and t"at t"e participants are not s"are croppers nor lessees, and t"e
/9% did not s"are in t"e prodce of t"e participantsC la!or.
In t"e same para$rap" of t"eir complaint, complainants claim t"at t"ey are landless peasants.T"is alle$ation re=ires proof and s"old not !e accepted as factally tre. 8!ri=e is not a
landless peasant. T"e facts s"o-ed "e -as "ysics Instrctor at /9% "oldin$ a very responsi!le
position -as separated from t"e service on accont of certain irre$larities "e committed -"ile
Assistant Director of t"e A$ri:&siness ro;ect of cltivatin$ lo-land rice. 8t"ers may, at t"e
moment, o-n no land in &idnon !t t"ey may not necessarily !e so destitte in t"eir places of
ori$in. No proof -"atsoever appears in t"e record to s"o- t"at t"ey are landless peasants.
T"e evidence on record esta!lis" -it"ot do!t t"at t"e complainants -ere ori$inally at"ori5ed
or $iven permission to occpy certain areas of t"e /9% property for a definite prpose to
carry ot certain niversity pro;ects as part of t"e /9%Cs pro$ram of activities prsant to itsavo-ed prpose of $ivin$ trainin$ and instrction in a$ricltral and ot"er related tec"nolo$ies,
sin$ t"e land and ot"er resorces of t"e instittion as a la!oratory for t"ese pro;ects. T"eir entry
into t"e land of t"e /9% -as -it" t"e permission and -ritten consent of t"e o-ner, t"e /9%,
for a limited period and for a specific prpose. After t"e epiration of t"eir privile$e to occpy
and cltivate t"e land of t"e /9%, t"eir contined stay -as nat"ori5ed and t"eir settlement on
t"e /9%Cs land -as -it"ot le$al at"ority. A person enterin$ pon lands of anot"er, not
claimin$ in $ood fait" t"e ri$"t to do so !y virte of any title of "is o-n, or !y virte of some
a$reement -it" t"e o-ner or -it" one -"om "e !elieves "olds title to t"e land, is a
s=atter. % S=atters cannot enter t"e land of anot"er srreptitiosly or !y stealt", and nder t"e
m!rella of t"e /AR, claim ri$"ts to said property as landless peasants. %nder Section 4 of
R.A. ++', persons $ilty of committin$ pro"i!ited acts of forci!le entry or ille$al detainer do
not =alify as !eneficiaries and may not avail t"emselves of t"e ri$"ts and !enefits of a$rarian
reform. Any sc" person -"o no-in$ly and -ilflly violates t"e a!ove provision of t"e Act
s"all !e pnis"ed -it" imprisonment or fine at t"e discretion of t"e /ort.
2d3 All private lands devoted to or sita!le for a$ricltre re$ardless of t"e
a$ricltral prodcts raised or t"at can !e raised t"ereon.
Sec. 17 /1/MPT23S A0 /1-L#S23S . Lands actally, directly and
eclsively sed and fond to !e necessary for pars, -ildlife, forest reserves,
reforestration, fis" sanctaries and !reedin$ $ronds, -aters"eds and man$roves,
national defense, school sites and campuses including e4perimental farm stations
operated ! pulic or private schools for educational purposes, seeds and
seedlings research and pilot production centers, c"rc" sites and convents
apprtenant t"ereto, mos=e sites and Islamic centers apprtenant t"ereto,
commnal !rial $ronds and cemeteries, penal colonies and penal farms actally
-ored !y t"e inmates, $overnment and private researc" and =arantine centers
and all lands -it" ei$"teen percent 21*H3 slope and over, ecept t"ose already
developed shall e e4empt from the coverage of this Act. 2Emp"asis spplied3.
T"e constrction $iven !y t"e DARA& to Section 17 restricts t"e land area of t"e /9% to its
present needs or to a land area presently, actively eploited and tili5ed !y t"e niversity in
carryin$ ot its present edcational pro$ram -it" its present stdent poplation and academic
facility overlooin$ t"e very si$nificant factor of $ro-t" of t"e niversity in t"e years to
come. &y t"e natre of t"e /9%, -"ic" is a sc"ool esta!lis"ed to promote a$ricltre and
indstry, t"e need for a vast tract of a$ricltral land and for ftre pro$rams of epansion is
o!vios. At t"e otset, t"e /9% -as conceived in t"e same manner as land $rant colle$es in
America, a type of edcational instittion -"ic" !la5ed t"e trail for t"e development of vast
tracts of neplored and ndeveloped a$ricltral lands in t"e 9id:?est. ?"at -e no- no- as
9ic"i$an State %niversity, enn State %niversity and Illinois State %niversity, started as smallland $rant colle$es, -it" mea$er fndin$ to spport t"eir ever increasin$ edcational pro$rams.
T"ey -ere $iven etensive tracts of a$ricltral and forest lands to !e developed to spport t"eir
nmeros epandin$ activities in t"e fields of a$ricltral tec"nolo$y and scientific researc".
nds for t"e spport of t"e edcational pro$rams of land $rant colle$es came from $overnment
appropriation, tition and ot"er stdent fees, private endo-ments and $ifts, and earnin$s from
miscellaneos sorces. ( It -as in t"is same spirit t"at resident @arcia issed roclamation No.
B+, -it"dra-in$ from sale or settlement and reservin$ for t"e 9indanao A$ricltral /olle$e
2forernner of t"e /9%3 a land reservation of 4,7*7 "ectares as its ftre camps. It -as set p
in &idnon, in t"e "interlands of 9indanao, in order t"at it can "ave eno$" resorces and -ide
open spaces to $ro- as an a$ricltral edcational instittion, to develop and train ftre farmers
of 9indanao and "elp attract settlers to t"at part of t"e contry.
In line -it" its avo-ed prpose as an a$ricltral and tec"nical sc"ool, t"e %niversity adopted a
land tili5ation pro$ram to develop and eploit its 47*7:"ectare land reservation as follo-sG )
In t"e case at !ar, t"e DARA& fond t"at t"e complainants are not s"are tenants or lease "olders
of t"e /9%, yet it ordered t"e >se$re$ation of a sita!le compact and conti$os area of or
#ndred "ectares, more or less>, from t"e /9% land reservation, and directed t"e DAR
Re$ional Director to implement its order of se$re$ation. #avin$ fond t"at t"e complainants in
t"is a$rarian dispte for Declaration of Tenancy Stats are not entitled to claim as !eneficiaries
of t"e /AR !ecase t"ey are not s"are tenants or lease"olders, its order for t"e se$re$ation of
B77 "ectares of t"e /9% land -as -it"ot le$al at"ority. - do not !elieve t"at t"e =asi:
;dicial fnction of t"e DARA& carries -it" it $reater at"ority t"an ordinary corts to mae an
a-ard !eyond -"at -as demanded !y t"e complainantsFpetitioners, even in an a$rarian dispte.
?"ere t"e =asi:;dicial !ody finds t"at t"e complainantsFpetitioners are not entitled to t"e ri$"ts
t"ey are demandin$, it is an erroneos interpretation of at"ority for t"at =asi:;dicial !ody to
order private property to !e a-arded to ftre !eneficiaries. T"e order se$re$ation B77 "ectaresof t"e /9% land -as issed on a findin$ t"at t"e complainants are not entitled as !eneficiaries,
and on an erroneos assmption t"at t"e /9% land -"ic" is eclded or eempted nder t"e la-
is s!;ect to t"e covera$e of t"e /AR. @oin$ !eyond -"at -as ased !y t"e complainants -"o
-ere not entitled to t"e relief prayed t"e complainants -"o -ere not entitled to t"e relief prayed
for, constittes a $rave a!se of discretion !ecase it implies sc" capricios and -"imsical
eercise of ;d$ment as is e=ivalent to lac of ;risdiction.
T"e edcation of t"e yot" and a$rarian reform are admittedly amon$ t"e "i$"est priorities in t"e
$overnment socio:economic pro$rams. In t"is case, neit"er need $ive -ay to t"e ot"er. /ertainly,
t"ere mst still !e vast tracts of a$ricltral land in 9indanao otside t"e /9% land reservation-"ic" can !e made availa!le to landless peasants, assmin$ t"e claimants "ere, or some of t"em,
can =alify as /AR !eneficiaries. To or mind, t"e tain$ of t"e /9% land -"ic" "ad !een
se$re$ated for edcational prposes for distri!tion to yet ncertain !eneficiaries is a $ross
misinterpretation of t"e at"ority and ;risdiction $ranted !y la- to t"e DARA&.
T"e decision in t"is case is of far:reac"in$ si$nificance as far as it concerns state colle$es and
niversities -"ose resorces and researc" facilities may !e $radally eroded !y misconstrin$
t"e eemptions from t"e /AR. T"ese state colle$es and niversities are t"e main ve"icles for
or scientific and tec"nolo$ical advancement in t"e field of a$ricltre, so vital to t"e eistence,
$ro-t" and development of t"is contry.
It is t"e opinion of t"is /ort, in t"e li$"t of t"e fore$oin$ analysis and for t"e reasons indicated,
t"at t"e evidence is sfficient to sstain a findin$ of $rave a!se of discretion !y respondents
/ort of Appeals and DAR Ad;dication &oard. ?e "ere!y declare t"e decision of t"e DARA&
dated Septem!er B, 1)*) and t"e decision of t"e /ort of Appeals dated A$st 67, 1))7,
compensation at '1,*77,6*+.B4 for t"e 411.+*6 "ectares 2T/T No. T:413 and 61,+7*,61'.6*
for t"e 16*.1+1 "ectares 2T/T No. T:16*3.K
Not satisfied -it" t"e valation, L& filed on e!rary 1, 6774, t-o separate
petitionsK* for ;dicial determination of ;st compensation !efore t"e Re$ional Trial /ort of San
(ose, 8ccidental 9indoro, actin$ as a Special A$rarian /ort, doceted as A$rarian /ase No. R:144) for T/T No. T:41 and A$rarian /ase No. R:14B7 for T/T No. T:16*, and raffled to &ranc"
B+ t"ereof.
etitioners filed separate 9otions to Deposit t"e reliminary Valation %nder Section
1+2e3 of Rep!lic Act 2R.A.3 No. ++' 21)**3K) and Ad /atelam Ans-er prayin$ amon$ ot"ers
?#ERE8RE, 9s. Teresita V. Ten$co, of t"e Land /ompensation
Department I 2L/D I3, Land &an of t"e "ilippines, is "ere!y ordered prsantto Section 1+ 2e3 of RA ++' in relation to Section 6, Administrative 8rder No. *,
Series of 1))1, to deposit t"e provisional compensation as determined !y t"e
ARAD in cas" and !onds, as follo-sG
1. In A$rarian /ase No. R:144), t"e amont of '1,*77,6*+.B4, mins t"e
amont received !y t"e Lando-ner<
6. In A$rarian /ase No. R:14B7, t"e amont of 61,+7*,61'.6*, less t"eamont of 1,'16,''.1+, t"e amont already deposited.
Sc" deposit mst !e made -it" t"e Land &an of t"e "ilippines, 9anila -it"in five 2'3 days from receipt of a copy of t"is order
and to notify t"is cort of "er compliance -it"in sc" period.
9otion for Reconsideration is @RANTED, and 8r 9ay 6+, 677B Decision is
"ere!y VA/ATED and A&AND8NED -it" t"e end in vie- of $ivin$ -ay to and
actin$ in "armony and in con$rence -it" t"e tenor of t"e rlin$ in t"e case of @a!atin. Accordin$ly, t"e assailed rlin$s of t"e Special A$rarian /ort is 2sic3
commanded to compte and fi t"e ;st compensation for t"e epropriated
a$ricltral lands strictly in accordance -it" t"e mode of comptation prescri!ed2sic3 8r 9ay 6+, 677B ;d$ment in t"e case of @a!atin.
S8 8RDERED.K67
In t"e Amended Decision, t"e /ort of Appeals "eld t"at t"e immediate deposit of t"e
preliminary vale of t"e epropriated properties is improper !ecase it -as erroneosly
compted. /itin$ Gaatin v. Land %an5 of the Philippines,K61 it "eld t"at t"e formla to compte
In t"e case of Land %an5 of the Philippines v. atividad ,K6B t"e /ort rled t"sG
Land &ans contention t"at t"e property -as ac=ired for prposes of a$rarian reform on 8cto!er 61, 1)6, t"e time of t"e effectivity of D 6, er$o ;st compensation s"old !e !ased on t"e vale of t"e property as of t"at time and
not at t"e time of possession in 1))4, is lie-ise erroneos. In 3ffice of the
President, Malaca6ang, Manila v. -ourt of Appeals, -e rled t"at t"e sei5re of t"e land"oldin$ did not tae place on t"e date of effectivity of D 6 !t -old
tae effect on t"e payment of ;st compensation.
T"e atividad case reiterated t"e /orts rlin$ in 3ffice of the President v. -ourt of
AppealsK6' t"at t"e epropriation of t"e land"oldin$ did not tae place on t"e effectivity of .D.
No. 6 on 8cto!er 61, 1)6 !t sei5re -old tae effect on t"e payment of ;st compensation ;dicially determined.
Lie-ise, in t"e recent case of "eirs of 7rancisco $. Tantoco, Sr. v. -ourt of Appeals,K6+ -e "eld t"at epropriation of land"oldin$s covered !y R.A. No. ++' tae place, not on t"e
effectivity of t"e Act on (ne 1', 1)**, !t on t"e payment of ;st compensation.
In t"e instant case, petitioners -ere deprived of t"eir properties in 1)6 !t "ave yet to
receive t"e ;st compensation t"erefor. T"e parcels of land -ere already s!divided and
distri!ted to t"e farmer:!eneficiaries t"ere!y immediately deprivin$ petitioners of t"eir
se. %nder t"e circmstances, it -old !e "i$"ly ine=ita!le on t"e part of t"e petitioners to
compte t"e ;st compensation sin$ t"e vales at t"e time of t"e tain$ in 1)6, and not at t"e
time of t"e payment, considerin$ t"at t"e $overnment and t"e farmer:!eneficiaries "ave already
!enefited from t"e land alt"o$" o-ners"ip t"ereof "ave not yet !een transferred in t"eir
names. etitioners -ere deprived of t"eir properties -it"ot payment of ;st compensation
-"ic", nder t"e la-, is a prere=isite !efore t"e property can !e taen a-ay from its o-ners.K6 T"e transfer of possession and o-ners"ip of t"e land to t"e $overnment are conditioned pon
t"e receipt !y t"e lando-ner of t"e correspondin$ payment or deposit !y t"e DAR of t"ecompensation -it" an accessi!le !an. %ntil t"en, title remains -it" t"e lando-ner.K6*
8r rlin$ in Association of Small Landowners in the Philippines, 2nc. v. Secretar! of
It is tre t"at .D. No. 6 epressly ordered t"e emancipation of tenant:
farmer as 8cto!er 61, 1)6 and declared t"at "e s"all M!e deemed t"e o-nerO of a
portion of land consistin$ of a family:si5ed farm ecept t"at Mno title to t"e lando-ned !y "im -as to !e actally issed to "im nless and ntil "e "ad !ecome a
fll:fled$ed mem!er of a dly reco$ni5ed farmers cooperative.O It -as
nderstood, "o-ever, t"at fll payment of t"e ;st compensation also "ad to !emade first, conforma!ly to t"e constittional re=irement.
?"en E.8. No. 66*, cate$orically stated in its Section 1 t"atG
All =alified farmer:!eneficiaries are no- deemed fll
o-ners as of 8cto!er 61, 1)6 of t"e land t"ey ac8uired !y virte
of residential Decree No. 6 2Emp"asis spplied.3
it -as o!viosly referrin$ to lands already validly ac=ired nder t"e said decree,
after proof of fll:fled$ed mem!ers"ip in t"e farmers cooperatives and fll
payment of ;st compensation.
T"e /AR La-, for its part, conditions t"e transfer of possession ando-ners"ip of t"e land to t"e $overnment on receipt !y t"e lando-ner of t"e
correspondin$ payment or t"e deposit !y t"e DAR of t"e compensation in cas" or
L& !onds -it" an accessi!le !an. %ntil t"en, title also remains -it" t"elando-ner. No otri$"t c"an$e of o-ners"ip is contemplated eit"er.
?e also note t"at t"e epropriation proceedin$s in t"e instant case -as initiated nder
.D. No. 6 !t t"e a$rarian reform process is still incomplete considerin$ t"at t"e ;st
compensation to !e paid to petitioners "as yet to !e settled. /onsiderin$ t"e passa$e of R.A. No.++' !efore t"e completion of t"is process, t"e ;st compensation s"old !e determined and t"e
process conclded nder t"e said la-. Indeed, R.A. No. ++' is t"e applica!le la-, -it" .D. No.
6 and E.8. No. 66* "avin$ only sppletory effect.K47
In Land %an5 of the Philippines v. -ourt of Appeals,K41 -e "eld t"atG
RA ++' incldes D 6 lands amon$ t"e properties -"ic" t"e DAR s"allac=ire and distri!te to t"e landless. And to facilitate t"e ac=isition and
distri!tion t"ereof, Secs. 1+, 1 and 1* of t"e Act s"old !e ad"ered to.
Section 1* of R.A. No. ++' mandates t"at t"e L& s"all compensate t"e lando-ner in
sc" amont as may !e a$reed pon !y t"e lando-ner and t"e DAR and t"e L& or as may !e
finally determined !y t"e cort as t"e ;st compensation for t"e land. In determinin$ ;st
compensation, t"e cost of t"e ac=isition of t"e land, t"e crrent vale of lie properties, its
natre, actal se and income, t"e s-orn valation !y t"e o-ner, t"e ta declarations, and t"e
assessment made !y $overnment assessors s"all !e considered. T"e social and economic
!enefits contri!ted !y t"e farmers and t"e farm-orers and !y t"e $overnment to t"e property
as -ell as t"e nonpayment of taes or loans secred from any $overnment financin$ instittion
on t"e said land s"all !e considered as additional factors to determine its valation.K46
/orollarily, -e "eld in Land %an5 of the Philippines v. -eladaK44 t"at t"e a!ove provision
-as converted into a formla !y t"e DAR t"ro$" Administrative 8rder No. 7', S. 1))*, to -itG
Land Vale 2LV3 2/apitali5ed Net Income 7.+3 W 2/ompara!le Sales 7.43 W 29aret
Vale per Ta Declaration 7.13
etitioners -ere deprived of t"eir properties -ay !ac in 1)6, yet to date, t"ey "ave not
yet received ;st compensation. T"s, it -old certainly !e ine=ita!le to determine ;st
compensation !ased on t"e $ideline provided !y .D. No. 66 and E.8. No. 66* considerin$ t"e
failre to determine ;st compensation for a considera!le len$t" of time. T"at ;st compensation
s"old !e determined in accordance -it" R.A. No. ++' and not .D. No. 66 or E.8. No. 66*, is
important considerin$ t"at ;st compensation s"old !e t"e fll and fair e=ivalent of t"e
property taen from its o-ner !y t"e epropriator, t"e e=ivalent !ein$ real, s!stantial, fll and
ample.K4B
$4EREFORE, premises considered, t"e petition is GRANTED. T"e assailed Amended
Decision dated 8cto!er 6, 677' of t"e /ort of Appeals in /A:@.R. S No. '47is REVERSED !"# SET ASIDE. T"e Decision dated 9ay 6+, 677B of t"e /ort of Appeals
affirmin$ 2a3 t"e 9arc" 41, 6774 8rder of t"e Special A$rarian /ort orderin$ t"e respondent
Land &an of t"e "ilippines to deposit t"e ;st compensation provisionally determined !y t"e
ARAD< 2!3 t"e 9ay 6+, 6774 Resoltion denyin$ respondents 9otion for Reconsideration< and
2c3 t"e 9ay 6, 6774 8rder directin$ Teresita V. Ten$co, respondents Land /ompensation
Department 9ana$er to comply -it" t"e 9arc" 41, 6774 8rder, is REINSTATED. T"e
Re$ional Trial /ort of San (ose, 8ccidental 9indoro, &ranc" B+, actin$ as Special A$rarian
/ort is ORDERED to proceed -it" dispatc" in t"e trial of A$rarian /ase Nos. R:144) and R:
14B7, and to compte t"e final valation of t"e s!;ect properties !ased on t"e aforementioned
declarin$ fll land o-ners"ip in favor of t"e !eneficiaries of .D. No. 6 and providin$ for t"e
valation of still nvaled lands covered !y t"e decree as -ell as t"e manner of t"eir payment.T"is -as follo-ed on (ly 66, 1)* !y residential roclamation No. 141, instittin$ a
compre"ensive a$rarian reform pro$ram 2/AR3, and E.8. No. 66), providin$ t"e mec"anics for
its implementation.
S!se=ently, -it" its formal or$ani5ation, t"e revived /on$ress of t"e "ilippines too over
le$islative po-er from t"e resident and started its o-n deli!erations, incldin$ etensive p!lic
"earin$s, on t"e improvement of t"e interests of farmers. T"e reslt, after almost a year of
spirited de!ate, -as t"e enactment of R.A. No. ++', ot"er-ise no-n as t"e /ompre"ensive
A$rarian Reform La- of 1)**, -"ic" resident A=ino si$ned on (ne 17, 1)**. T"is la-, -"ile
considera!ly c"an$in$ t"e earlier mentioned enactments, nevert"eless $ives t"em sppletoryeffect insofar as t"ey are not inconsistent -it" its provisions. %
as it is traditionally nderstood, i.e., -it" money and in fll, !t no sc" payment is
contemplated in Section ' of t"e E.8. No. 66). 8n t"e contrary, Section +, t"ereof provides t"at
t"e Land &an of t"e "ilippines >s"all compensate t"e lando-ner in an amont to !eesta!lis"ed !y t"e $overnment, -"ic" s"all !e !ased on t"e o-nerCs declaration of crrent fair
maret vale as provided in Section B "ereof, !t s!;ect to certain controls to !e defined and
proml$ated !y t"e residential A$rarian Reform /oncil.> T"is compensation may not !e paid
flly in money !t in any of several modes t"at may consist of part cas" and part !ond, -it"
interest, matrin$ periodically, or direct payment in cas" or !ond as may !e mtally a$reed
pon !y t"e !eneficiary and t"e lando-ner or as may !e prescri!ed or approved !y t"e AR/.
T"e petitioners also ar$e t"at in t"e issance of t"e t-o measres, no effort -as made to mae a
carefl stdy of t"e s$ar plantersC sitation. T"ere is no tenancy pro!lem in t"e s$ar areas t"at
can ;stify t"e application of t"e /AR to t"em. To t"e etent t"at t"e s$ar planters "ave !eenlmped in t"e same le$islation -it" ot"er farmers, alt"o$" t"ey are a separate $rop -it"
A motion for intervention -as filed on A$st 6,1)* !y t"e National ederation of S$arcane
lanters 2NAS3 -"ic" claims a mem!ers"ip of at least 67,777 individal s$ar planters all over
t"e contry. 8n Septem!er 17, 1)*, anot"er motion for intervention -as filed, t"is time !y
9anel &arcelona, et al., representin$ cocont and riceland o-ners. &ot" motions -ere $ranted
!y t"e /ort.
NAS alle$es t"at resident A=ino "ad no at"ority to fnd t"e A$rarian Reform ro$ram andt"at, in any event, t"e appropriation is invalid !ecase of ncertainty in t"e amont appropriated.
Section 6 of roc. No. 141 and Sections 67 and 61 of E.8. No. 66) provide for an initial
appropriation of fifty !illion pesos and t"s specifies t"e minimm rat"er t"an t"e maimm
at"ori5ed amont. T"is is not allo-ed. rt"ermore, t"e stated initial amont "as not !een
certified to !y t"e National Treasrer as actally availa!le.
T-o additional ar$ments are made !y &arcelona, to -it, t"e failre to esta!lis" !y clear and
convincin$ evidence t"e necessity for t"e eercise of t"e po-ers of eminent domain, and t"e
violation of t"e fndamental ri$"t to o-n property.
T"e petitioners also decry t"e penalty for non:re$istration of t"e lands, -"ic" is t"e epropriation
of t"e said land for an amont e=al to t"e $overnment assessorCs valation of t"e land for ta
prposes. 8n t"e ot"er "and, if t"e lando-ner declares "is o-n valation "e is n;stly re=ired
to immediately pay t"e correspondin$ taes on t"e land, in violation of t"e niformity rle.
In "is consolidated /omment, t"e Solicitor @eneral first invoes t"e presmption of
constittionality in favor of roc. No. 141 and E.8. No. 66). #e also ;stifies t"e necessity for
t"e epropriation as eplained in t"e >-"ereas> clases of t"e roclamation and s!mits t"at,
contrary to t"e petitionerCs contention, a pilot pro;ect to determine t"e feasi!ility of /AR and a
$eneral srvey on t"e peopleCs opinion t"ereon are not indispensa!le prere=isites to its
proml$ation.
8n t"e alle$ed violation of t"e e=al protection clase, t"e s$ar planters "ave failed to s"o-
t"at t"ey !elon$ to a different class and s"old !e differently treated. T"e /omment also s$$ests
t"e possi!ility of /on$ress first distri!tin$ p!lic a$ricltral lands and sc"edlin$ t"e
epropriation of private a$ricltral lands later. rom t"is vie-point, t"e petition for pro"i!ition
-old !e prematre.
T"e p!lic respondent also points ot t"at t"e constittional pro"i!ition is a$ainst t"e payment of
p!lic money -it"ot t"e correspondin$ appropriation. T"ere is no rle t"at only money already
in eistence can !e t"e s!;ect of an appropriation la-. inally, t"e earmarin$ of fifty !illion pesos as A$rarian Reform nd, alt"o$" denominated as an initial amont, is actally t"e
maimm sm appropriated. T"e -ord >initial> simply means t"at additional amonts may !e
appropriated later -"en necessary.
8n April 11, 1)**, rdencio Serrano, a cocont planter, filed a petition on "is o-n !e"alf,
assailin$ t"e constittionality of E.8. No. 66). In addition to t"e ar$ments already raised,
Serrano contends t"at t"e measre is nconstittional !ecaseG
213 8nly p!lic lands s"old !e inclded in t"e /AR<
263 E.8. No. 66) em!races more t"an one s!;ect -"ic" is not epressed in t"e
title<
243 T"e po-er of t"e resident to le$islate -as terminated on (ly 6, 1)*< and
2B3 T"e appropriation of a '7 !illion special fnd from t"e National Treasry did
mandams to compel action. If t"e dty is prely ministerial, t"e corts -ill
re=ire specific action. If t"e dty is prely discretionary, t"e corts
!y mandamus -ill re=ire action only. or eample, if an inferior cort, p!lic
official, or !oard s"old, for an nreasona!le len$t" of time, fail to decide a
particlar =estion to t"e $reat detriment of all parties concerned, or a cort
s"old refse to tae ;risdiction of a case -"en t"e la- clearly $ave it ;risdiction mandams -ill isse, in t"e first case to re=ire a decision, and in t"e
second to re=ire t"at ;risdiction !e taen of t"e case. 22
And -"ile it is tre t"at as a rle t"e -rit -ill not !e proper as lon$ as t"ere is still a plain,
speedy and ade=ate remedy availa!le from t"e administrative at"orities, resort to t"e corts
may still !e permitted if t"e isse raised is a =estion of la-. 23
III
T"ere are traditional distinctions !et-een t"e police po-er and t"e po-er of eminent domain t"atlo$ically preclde t"e application of !ot" po-ers at t"e same time on t"e same s!;ect. In t"e
case of -it! of %aguio v. A:ASA, 2% for eample, -"ere a la- re=ired t"e transfer of all
mnicipal -ater-ors systems to t"e NA?ASA in ec"an$e for its assets of e=ivalent vale,
s"old !e demolis"ed for t"e p!lic safety, or o!scene materials, -"ic" s"old !e destroyed in
t"e interest of p!lic morals. T"e confiscation of sc" property is not compensa!le, nlie t"e
tain$ of property nder t"e po-er of epropriation, -"ic" re=ires t"e payment of ;st
compensation to t"e o-ner.
In t"e case of Penns!lvania -oal -o. v. Mahon, 2& (stice #olmes laid do-n t"e limits of t"e
police po-er in a famos ap"orismG >T"e $eneral rle at least is t"at -"ile property may !e
re$lated to a certain etent, if re$lation $oes too far it -ill !e reco$ni5ed as a tain$.> T"e
re$lation t"at -ent >too far> -as a la- pro"i!itin$ minin$ -"ic" mi$"t case t"e s!sidence of
strctres for "man "a!itation constrcted on t"e land srface. T"is -as resisted !y a coal
company -"ic" "ad earlier $ranted a deed to t"e land over its mine !t reserved all minin$ ri$"ts
t"erender, -it" t"e $rantee assmin$ all riss and -aivin$ any dama$e claim. T"e /ort "eld
t"e la- cold not !e sstained -it"ot compensatin$ t"e $rantor. (stice &randeis filed a lone
dissent in -"ic" "e ar$ed t"at t"ere -as a valid eercise of t"e police po-er. #e saidG
Every restriction pon t"e se of property imposed in t"e eercise of t"e police
po-er deprives t"e o-ner of some ri$"t t"eretofore en;oyed, and is, in t"at sense,
an a!rid$ment !y t"e State of ri$"ts in property -it"ot main$ compensation.
&t restriction imposed to protect t"e p!lic "ealt", safety or morals from dan$ers
t"reatened is not a tain$. T"e restriction "ere in =estion is merely t"e
pro"i!ition of a noios se. T"e property so restricted remains in t"e possession
of its o-ner. T"e state does not appropriate it or mae any se of it. T"e state
merely prevents t"e o-ner from main$ a se -"ic" interferes -it" paramont
ri$"ts of t"e p!lic. ?"enever t"e se pro"i!ited ceases to !e noios as it
may !ecase of frt"er c"an$es in local or social conditions t"e restriction -ill"ave to !e removed and t"e o-ner -ill a$ain !e free to en;oy "is property as
"eretofore.
Recent trends, "o-ever, -old indicate not a polari5ation !t a min$lin$ of t"e police po-er and
t"e po-er of eminent domain, -it" t"e latter !ein$ sed as an implement of t"e former lie t"e
po-er of taation. T"e employment of t"e tain$ po-er to ac"ieve a police prpose "as lon$
!een accepted. 2' As for t"e po-er of epropriation, rof. (o"n (. /ostonis of t"e %niversity of
Illinois /olle$e of La- 2referrin$ to t"e earlier case of Eclid v. Am!ler Realty /o., 66 %S 4+',
E=al protection simply means t"at all persons or t"in$s similarly sitated mst !e treated alie
!ot" as to t"e ri$"ts conferred and t"e lia!ilities imposed. 33 T"e petitioners "ave not s"o-n t"at
t"ey !elon$ to a different class and entitled to a different treatment. T"e ar$ment t"at not only
lando-ners !t also o-ners of ot"er properties mst !e made to s"are t"e !rden of
implementin$ land reform mst !e re;ected. T"ere is a s!stantial distinction !et-een t"ese t-o
classes of o-ners t"at is clearly visi!le ecept to t"ose -"o -ill not see. T"ere is no need to
ela!orate on t"is matter. In any event, t"e /on$ress is allo-ed a -ide lee-ay in providin$ for a
valid classification. Its decision is accorded reco$nition and respect !y t"e corts of ;stice
ecept only -"ere its discretion is a!sed to t"e detriment of t"e &ill of Ri$"ts.
It is -ort" remarin$ at t"is ;nctre t"at a statte may !e sstained nder t"e police po-er only
if t"ere is a concrrence of t"e la-fl s!;ect and t"e la-fl met"od. t ot"er-ise, t"e interests
of t"e p!lic $enerally as distin$is"ed from t"ose of a particlar class re=ire t"e interference of
t"e State and, no less important, t"e means employed are reasona!ly necessary for t"e attainment
of t"e prpose so$"t to !e ac"ieved and not ndly oppressive pon individals.
3%
As t"es!;ect and prpose of a$rarian reform "ave !een laid do-n !y t"e /onstittion itself, -e may
say t"at t"e first re=irement "as !een satisfied. ?"at remains to !e eamined is t"e validity of
t"e met"od employed to ac"ieve t"e constittional $oal.
8ne of t"e !asic principles of t"e democratic system is t"at -"ere t"e ri$"ts of t"e individal are
concerned, t"e end does not ;stify t"e means. It is not eno$" t"at t"ere !e a valid o!;ective< it
is also necessary t"at t"e means employed to prse it !e in eepin$ -it" t"e /onstittion. 9ere
epediency -ill not ecse constittional s"ortcts. T"ere is no =estion t"at not even t"e
stron$est moral conviction or t"e most r$ent p!lic need, s!;ect only to a fe- nota!le
eceptions, -ill ecse t"e !ypassin$ of an individalCs ri$"ts. It is no ea$$eration to say t"at a, person invoin$ a ri$"t $aranteed nder Article III of t"e /onstittion is a ma;ority of one even
as a$ainst t"e rest of t"e nation -"o -old deny "im t"at ri$"t.
T"at ri$"t covers t"e personCs life, "is li!erty and "is property nder Section 1 of Article III of
t"e /onstittion. ?it" re$ard to "is property, t"e o-ner en;oys t"e added protection of Section ),
-"ic" reaffirms t"e familiar rle t"at private property s"all not !e taen for p!lic se -it"ot
;st compensation.
T"is !rin$s s no- to t"e po-er of eminent domain.
IV
Eminent domain is an in"erent po-er of t"e State t"at ena!les it to forci!ly
ac=ire private lands intended for p!lic se pon payment of ;st compensation
to t"e o-ner. 8!viosly, t"ere is no need to epropriate -"ere t"e o-ner is
-illin$ to sell nder terms also accepta!le to t"e prc"aser, in -"ic" case an
arent"etically, it is not correct to say t"at only p!lic a$ricltral lands may !e covered !y t"e
/AR as t"e /onstittion calls for >t"e ;st distri!tion of all a$ricltral lands.> In any event,
t"e decision to redistri!te private a$ricltral lands in t"e manner prescri!ed !y t"e /AR -as
made !y t"e le$islative and eective departments in t"e eercise of t"eir discretion. ?e are not
;stified in revie-in$ t"at discretion in t"e a!sence of a clear s"o-in$ t"at it "as !een a!sed.
A !ecomin$ cortesy admonis"es s to respect t"e decisions of t"e political departments -"en
t"ey decide -"at is no-n as t"e political =estion. As eplained !y /"ief (stice /oncepcion int"e case of Ta6ada v. -uencoG 3'
T"e term >political =estion> connotes -"at it means in ordinary parlance,
namely, a =estion of policy. It refers to >t"ose =estions -"ic", nder t"e
/onstittion, are to !e decided !y t"e people in t"eir soverei$n capacity< or in
re$ard to -"ic" fll discretionary at"ority "as !een dele$ated to t"e le$islative or
eective !ranc" of t"e $overnment.> It is concerned -it" isses dependent pon
t"e -isdom, not le$ality, of a particlar measre.
It is tre t"at t"e concept of t"e political =estion "as !een constricted -it" t"e enlar$ement of ;dicial po-er, -"ic" no- incldes t"e at"ority of t"e corts >to determine -"et"er or not t"ere
"as !een a $rave a!se of discretion amontin$ to lac or ecess of ;risdiction on t"e part of
any !ranc" or instrmentality of t"e @overnment.> 3( Even so, t"is s"old not !e constred as a
license for s to reverse t"e ot"er departments simply !ecase t"eir vie-s may not coincide -it"
T"e le$islatre and t"e eective "ave !een seen fit, in t"eir -isdom, to inclde in t"e /AR t"e
redistri!tion of private land"oldin$s 2even as t"e distri!tion of p!lic a$ricltral lands is first
provided for, -"ile also continin$ apace nder t"e !lic Land Act and ot"er co$nate la-s3.
T"e /ort sees no ;stification to interpose its at"ority, -"ic" -e may assert only if -e !elieve
t"at t"e political decision is not n-ise, !t ille$al. ?e do not find it to !e so.
In #.S. v. -handler<0unar :ater Power -ompan!, 3) it -as "eldG
/on$ress "avin$ determined, as it did !y t"e Act of 9arc" 4,1)7) t"at t"e entire
St. 9aryCs river !et-een t"e American !an and t"e international line, as -ell as
all of t"e pland nort" of t"e present s"ip canal, t"ro$"ot its entire len$t", -as
>necessary for t"e prpose of navi$ation of said -aters, and t"e -aters connected
t"ere-it",> t"at determination is conclsive in condemnation proceedin$s
institted !y t"e %nited States nder t"at Act, and t"ere is no room for ;dicial
revie- of t"e ;d$ment of /on$ress ... .
As earlier o!served, t"e re=irement for p!lic se "as already !een settled for s !y t"e
/onstittion itself No less t"an t"e 1)* /"arter calls for a$rarian reform, -"ic" is t"e reason
-"y private a$ricltral lands are to !e taen from t"eir o-ners, s!;ect to t"e prescri!ed
maimm retention limits. T"e prposes specified in .D. No. 6, roc. No. 141 and R.A. No.
++' are only an ela!oration of t"e constittional in;nction t"at t"e State adopt t"e necessary
measres >to encora$e and ndertae t"e ;st distri!tion of all a$ricltral lands to ena!le
farmers -"o are landless to o-n directly or collectively t"e lands t"ey till.> T"at p!lic se, as
prononced !y t"e fndamental la- itself, mst !e !indin$ on s.
T"e second re=irement, i.e., t"e payment of ;st compensation, needs a lon$er and more
t"o$"tfl eamination.
(st compensation is defined as t"e fll and fair e=ivalent of t"e property taen from its o-ner
!y t"e epropriator. 39 It "as !een repeatedly stressed !y t"is /ort t"at t"e measre is not t"e
taerCs $ain !t t"e o-nerCs loss.%0 T"e -ord >;st> is sed to intensify t"e meanin$ of t"e -ord
>compensation> to convey t"e idea t"at t"e e=ivalent to !e rendered for t"e property to !e taen
s"all !e real, s!stantial, fll, ample. %1
It !ears repeatin$ t"at t"e measres c"allen$ed in t"ese petitions contemplate more t"an a merere$lation of t"e se of private lands nder t"e police po-er. ?e deal "ere -it" an actal tain$
of private a$ricltral lands t"at "as dispossessed t"e o-ners of t"eir property and deprived t"em
of all its !eneficial se and en;oyment, to entitle t"em to t"e ;st compensation mandated !y t"e
As "eld in $epulic of the Philippines v. -astellvi, %2 t"ere is compensa!le tain$ -"en t"e
follo-in$ conditions concrG 213 t"e epropriator mst enter a private property< 263 t"e entry
mst !e for more t"an a momentary period< 243 t"e entry mst !e nder -arrant or color of le$al
at"ority< 2B3 t"e property mst !e devoted to p!lic se or ot"er-ise informally appropriated or
in;riosly affected< and 2'3 t"e tili5ation of t"e property for p!lic se mst !e in sc" a -ay
as to ost t"e o-ner and deprive "im of !eneficial en;oyment of t"e property. All t"ese re=isites
are envisioned in t"e measres !efore s.
?"ere t"e State itself is t"e epropriator, it is not necessary for it to mae a deposit pon its
tain$ possession of t"e condemned property, as >t"e compensation is a p!lic c"ar$e, t"e $ood
fait" of t"e p!lic is pled$ed for its payment, and all t"e resorces of taation may !e employed
in raisin$ t"e amont.> %3 Nevert"eless, Section 1+2e3 of t"e /AR La- provides t"atG
%pon receipt !y t"e lando-ner of t"e correspondin$ payment or, in case of
re;ection or no response from t"e lando-ner, pon t"e deposit -it" an accessi!le
!an desi$nated !y t"e DAR of t"e compensation in cas" or in L& !onds in
accordance -it" t"is Act, t"e DAR s"all tae immediate possession of t"e land
and s"all re=est t"e proper Re$ister of Deeds to isse a Transfer /ertificate of
Title 2T/T3 in t"e name of t"e Rep!lic of t"e "ilippines. T"e DAR s"all
t"ereafter proceed -it" t"e redistri!tion of t"e land to t"e =alified !eneficiaries.
8!;ection is raised, "o-ever, to t"e manner of fiin$ t"e ;st compensation, -"ic" it is claimed
is entrsted to t"e administrative at"orities in violation of ;dicial prero$atives. Specific
reference is made to Section 1+2d3, -"ic" provides t"at in case of t"e re;ection or disre$ard !y
t"e o-ner of t"e offer of t"e $overnment to !y "is land:
... t"e DAR s"all condct smmary administrative proceedin$s to determine t"e
compensation for t"e land !y re=irin$ t"e lando-ner, t"e L& and ot"er
interested parties to s!mit evidence as to t"e ;st compensation for t"e land,
-it"in fifteen 21'3 days from t"e receipt of t"e notice. After t"e epiration of t"e
a!ove period, t"e matter is deemed s!mitted for decision. T"e DAR s"all decide
t"e case -it"in t"irty 2473 days after it is s!mitted for decision.
To !e sre, t"e determination of ;st compensation is a fnction addressed to t"e corts of ;stice
and may not !e srped !y any ot"er !ranc" or official of t"e $overnment. /P9A v. 0ula! %% resolved a c"allen$e to several decrees proml$ated !y resident 9arcos providin$ t"at
t"e ;st compensation for property nder epropriation s"old !e eit"er t"e assessment of t"e
T"e met"od of ascertainin$ ;st compensation nder t"e aforecited decrees
constittes impermissi!le encroac"ment on ;dicial prero$atives. It tends to
render t"is /ort intile in a matter -"ic" nder t"is /onstittion is reserved to it
for final determination.
T"s, alt"o$" in an epropriation proceedin$ t"e cort tec"nically -old still
"ave t"e po-er to determine t"e ;st compensation for t"e property, follo-in$ t"e
applica!le decrees, its tas -old !e rele$ated to simply statin$ t"e lo-er vale of
t"e property as declared eit"er !y t"e o-ner or t"e assessor. As a necessary
conse=ence, it -old !e seless for t"e cort to appoint commissioners nder
Rle + of t"e Rles of /ort. 9oreover, t"e need to satisfy t"e de process
clase in t"e tain$ of private property is seemin$ly flfilled since it cannot !e
said t"at a ;dicial proceedin$ -as not "ad !efore t"e actal tain$. #o-ever, t"e
strict application of t"e decrees drin$ t"e proceedin$s -old !e not"in$ s"ort of
a mere formality or c"arade as t"e cort "as only to c"oose !et-een t"e valationof t"e o-ner and t"at of t"e assessor, and its c"oice is al-ays limited to t"e lo-er
of t"e t-o. T"e cort cannot eercise its discretion or independence in
determinin$ -"at is ;st or fair. Even a $rade sc"ool ppil cold s!stitte for t"e
;d$e insofar as t"e determination of constittional ;st compensation is
concerned.
In t"e present petition, -e are once a$ain confronted -it" t"e same =estion of
-"et"er t"e corts nder .D. No. 1'44, -"ic" contains t"e same provision on ;st compensation as its predecessor decrees, still "ave t"e po-er and at"ority to
determine ;st compensation, independent of -"at is stated !y t"e decree and to
t"is effect, to appoint commissioners for sc" prpose.
T"is time, -e ans-er in t"e affirmative.
It is violative of de process to deny t"e o-ner t"e opportnity to prove t"at t"e
valation in t"e ta docments is nfair or -ron$. And it is replsive to t"e !asicconcepts of ;stice and fairness to allo- t"e "ap"a5ard -or of a minor
!reacrat or cler to a!soltely prevail over t"e ;d$ment of a cort proml$ated
only after epert commissioners "ave actally vie-ed t"e property, after evidence
and ar$ments pro and con "ave !een presented, and after all factors and
considerations essential to a fair and ;st determination "ave !een ;diciosly
financial instittion, provided t"e proceeds of t"e
loans s"all !e invested in an economic enterprise,
prefera!ly in a small and medim: scale indstry, in
t"e same province or re$ion as t"e land for -"ic"
t"e !onds are paid<
2v3 ayment for varios taes and fees to
$overnmentG rovided, T"at t"e se of t"ese !onds
for t"ese prposes -ill !e limited to a certain
percenta$e of t"e otstandin$ !alance of t"e
financial instrments< rovided, frt"er, T"at t"e
AR/ s"all determine t"e percenta$es mentioned
a!ove<
2vi3 ayment for tition fees of t"e immediate
family of t"e ori$inal !ond"older in $overnment
niversities, colle$es, trade sc"ools, and ot"er
instittions<
2vii3 ayment for fees of t"e immediate family of
t"e ori$inal !ond"older in $overnment "ospitals<
and
2viii3 Sc" ot"er ses as t"e AR/ may from timeto time allo-.
T"e contention of t"e petitioners in @.R. No. ) is t"at t"e a!ove provision is
nconstittional insofar as it re=ires t"e o-ners of t"e epropriated properties to accept ;st
compensation t"erefor in less t"an money, -"ic" is t"e only medim of payment allo-ed. In
spport of t"is contention, t"ey cite ;risprdence "oldin$ t"atG
T"e fndamental rle in epropriation matters is t"at t"e o-ner of t"e property
epropriated is entitled to a ;st compensation, -"ic" s"old !e neit"er more nor
less, -"enever it is possi!le to mae t"e assessment, t"an t"e money e=ivalent of said property. (st compensation "as al-ays !een nderstood to !e t"e ;st and
complete e=ivalent of t"e loss -"ic" t"e o-ner of t"e t"in$ epropriated "as to
sffer !y reason of t"e epropriation . %& 2Emp"asis spplied.3
In (.9. Ta5on /o. v. Land Tenre Administration, %' t"is /ort "eldG
8n t"e ot"er "and, t"ere is not"in$ in t"e records eit"er t"at militates a$ainst t"e assmptions -e
are main$ of t"e $eneral sentiments and intention of t"e mem!ers on t"e content and manner of
t"e payment to !e made to t"e lando-ner in t"e li$"t of t"e ma$nitde of t"e ependitre and t"e
limitations of t"e epropriator.
?it" t"ese assmptions, t"e /ort "ere!y declares t"at t"e content and manner of t"e ;st
compensation provided for in t"e afore: =oted Section 1* of t"e /AR La- is not violative of
t"e /onstittion. ?e do not mind admittin$ t"at a certain de$ree of pra$matism "as inflenced
or decision on t"is isse, !t after all t"is /ort is not a cloistered instittion removed from t"e
realities and demands of society or o!livios to t"e need for its en"ancement. T"e /ort is as
actely anios as t"e rest of or people to see t"e $oal of a$rarian reform ac"ieved at last after
t"e frstrations and deprivations of or peasant masses drin$ all t"ese disappointin$ decades.
?e are a-are t"at invalidation of t"e said section -ill reslt in t"e nllification of t"e entire
pro$ram, illin$ t"e farmerCs "opes even as t"ey approac" reali5ation and resrrectin$ t"e spectre
of discontent and dissent in t"e restless contryside. T"at is not in or vie- t"e intention of t"e/onstittion, and t"at is not -"at -e s"all decree today.
Acceptin$ t"e t"eory t"at payment of t"e ;st compensation is not al-ays re=ired to !e made
flly in money, -e find frt"er t"at t"e proportion of cas" payment to t"e ot"er t"in$s of vale
constittin$ t"e total payment, as determined on t"e !asis of t"e areas of t"e lands epropriated,
is not ndly oppressive pon t"e lando-ner. It is noted t"at t"e smaller t"e land, t"e !i$$er t"e
payment in money, primarily !ecase t"e small lando-ner -ill !e needin$ it more t"an t"e !i$
lando-ners, -"o can afford a !i$$er !alance in !onds and ot"er t"in$s of vale. No less
importantly, t"e $overnment financial instrments main$ p t"e !alance of t"e payment are
>ne$otia!le at any time.> T"e ot"er modes, -"ic" are lie-ise availa!le to t"e lando-ner at "isoption, are also not nreasona!le !ecase payment is made in s"ares of stoc, L& !onds, ot"er
properties or assets, ta credits, and ot"er t"in$s of vale e=ivalent to t"e amont of ;st
compensation.
Admittedly, t"e compensation contemplated in t"e la- -ill case t"e lando-ners, !i$ and small,
not a little inconvenience. As already remared, t"is cannot !e avoided. Nevert"eless, it is
devotly "oped t"at t"ese contrymen of ors, conscios as -e no- t"ey are of t"e need for
t"eir fore!earance and even sacrifice, -ill not !e$rd$e s t"eir indispensa!le s"are in t"e
attainment of t"e ideal of a$rarian reform. 8t"er-ise, or prsit of t"is elsive $oal -ill !e lie
t"e =est for t"e #oly @rail.
T"e complaint a$ainst t"e effects of non:re$istration of t"e land nder E.8. No. 66) does not
seem to !e via!le any more as it appears t"at Section B of t"e said 8rder "as !een sperseded !y
Section 1B of t"e /AR La-. T"is repeats t"e re=isites of re$istration as em!odied in t"e earlier
measre !t does not provide, as t"e latter did, t"at in case of failre or refsal to re$ister t"e
land, t"e valation t"ereof s"all !e t"at $iven !y t"e provincial or city assessor for ta prposes.
administrative level, especially t"e claim t"at t"e petitioners are not covered !y L8I BB !ecase
t"ey do not o-n ot"er a$ricltral lands t"an t"e s!;ects of t"eir petition.
8!viosly, t"e /ort cannot resolve t"ese isses. In any event, assmin$ t"at t"e petitioners "ave
not yet eercised t"eir retention ri$"ts, if any, nder .D. No. 6, t"e /ort "olds t"at t"ey are
entitled to t"e ne- retention ri$"ts provided for !y R.A. No. ++', -"ic" in fact are on t"e -"ole
more li!eral t"an t"ose $ranted !y t"e decree.
V
T"e /AR La- and t"e ot"er enactments also involved in t"ese cases "ave !een t"e s!;ect of
!itter attac from t"ose -"o point to t"e s"ortcomin$s of t"ese measres and as t"at t"ey !e
scrapped entirely. To !e sre, t"ese enactments are less t"an perfect< indeed, t"ey s"old !e
continosly re:eamined and re"oned, t"at t"ey may !e s"arper instrments for t"e !etter
protection of t"e farmerCs ri$"ts. &t -e "ave to start some-"ere. In t"e prsit of a$rarian
reform, -e do not tread on familiar $rond !t $rope on terrain fra$"t -it" pitfalls and
epected difficlties. T"is is inevita!le. T"e /AR La- is not a tried and tested pro;ect. 8n t"e
contrary, to se (stice #olmesCs -ords, >it is an eperiment, as all life is an eperiment,> and so
-e learn as -e ventre for-ard, and, if necessary, !y or o-n mistaes. ?e cannot epect
perfection alt"o$" -e s"old strive for it !y all means. 9eantime, -e str$$le as !est -e can in
freein$ t"e farmer from t"e iron s"acles t"at "ave nconsciona!ly, and for so lon$, fettered "is
sol to t"e soil.
&y t"e decision -e reac" today, all ma;or le$al o!stacles to t"e compre"ensive a$rarian reform
pro$ram are removed, to clear t"e -ay for t"e tre freedom of t"e farmer. ?e may no- $limpset"e day "e -ill !e released not only from -ant !t also from t"e eploitation and disdain of t"e
past and from "is o-n feelin$s of inade=acy and "elplessness. At last "is servitde -ill !e
ended forever. At last t"e farm on -"ic" "e toils -ill !e "is farm. It -ill !e "is portion of t"e
9ot"er Eart" t"at -ill $ive "im not only t"e staff of life !t also t"e ;oy of livin$. And -"ere
once it !red for "im only deep despair, no- can "e see in it t"e frition of "is "opes for a more
flfillin$ ftre. No- at last can "e !anis" from "is small plot of eart" "is insecrities and dar
resentments and >re!ild in it t"e msic and t"e dream.>
?#ERE8RE, t"e /ort "olds as follo-sG
1. R.A. No. ++', .D. No. 6, roc. No. 141, and E.8. Nos. 66* and 66) are
S%STAINED a$ainst all t"e constittional o!;ections raised in t"e "erein
petitions.
6. Title to all epropriated properties s"all !e transferred to t"e State only pon
fll payment of compensation to t"eir respective o-ners.