Assoc of Small Landowners

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EN BANC

G.R. No. 78742 July 14, 1989

ASSOCIATION OF SMALL LANDOWNERS IN THEPHILIPPINES, INC., JUANITO D. GOMEZ, GERARDOB. ALARCIO, FELIPE A. GUICO, JR., BERNARDO M.ALMONTE, CANUTO RAMIR B. CABRITO, ISIDRO T.

GUICO, FELISA I. LLAMIDO, FAUSTO J. SALVA,REYNALDO G. ESTRADA, FELISA C. BAUTISTA,ESMENIA J. CABE, TEODORO B. MADRIAGA,AUREA J. PRESTOSA, EMERENCIANA J. ISLA,FELICISIMA C. ARRESTO, CONSUELO M.MORALES, BENJAMIN R. SEGISMUNDO, CIRILA A. JOSE & NAPOLEON S. FERRER, Petitioners,vs. HONORABLE SECRETARY OF AGRARIANREFORM, Respondent .

G.R. No. 79310 July 14, 1989

ARSENIO AL. ACUNA, NEWTON JISON, VICTORINOFERRARIS, DENNIS JEREZA, HERMINIGILDO

GUSTILO, PAULINO D. TOLENTINO and PLANTERS'COMMITTEE, INC., Victorias Mill District,Victorias, Negros Occidental,Petitioners, vs. JOKERARROYO, PHILIP E. JUICO and PRESIDENTIALAGRARIAN REFORM COUNCIL,Respondents.

G.R. No. 79744 July 14, 1989

INOCENTES PABICO, Petitioner , vs. HON. PHILIP E. JUICO, SECRETARY OF THE DEPARTMENT OFAGRARIAN REFORM, HON. JOKER ARROYO,EXECUTIVE SECRETARY OF THE OFFICE OF THEPRESIDENT, and Messrs. SALVADOR TALENTO, JAIME ABOGADO, CONRADO AVANCENA and

ROBERTO TAAY, Respondents.

G.R. No. 79777 July 14, 1989

NICOLAS S. MANAAY and AGUSTIN HERMANO, JR., Petitioners, vs. HON. PHILIP ELLA JUICO, asSecretary of Agrarian Reform, and LAND BANK OF THE PHILIPPINES, Respondents.cha library

CRUZ, J.:

In ancient mythology, Antaeus was a terrible giant whoblocked and challenged Hercules for his life on his wayto Mycenae after performing his eleventh labor. Thetwo wrestled mightily and Hercules flung his adversaryto the ground thinking him dead, but Antaeus roseeven stronger to resume their struggle. This happenedseveral times to Hercules' increasing amazement.Finally, as they continued grappling, it dawned onHercules that Antaeus was the son of Gaea and couldnever die as long as any part of his body was touchinghis Mother Earth. Thus forewarned, Hercules then heldAntaeus up in the air, beyond the reach of thesustaining soil, and crushed him to death. library

Mother Earth. The sustaining soil. The giver of lifewithout whose invigorating touch even the powerfuAntaeus weakened and died.

The cases before us are not as fanciful as the foregoingtale. But they also tell of the elemental forces of lifeand death, of men and women who, like Antaeus needthe sustaining strength of the precious earth to stay

alive.

"Land for the Landless" is a slogan that underscoresthe acute imbalance in the distribution of this preciousresource among our people. But it is more than aslogan. Through the brooding centuries, it has becomea battle-cry dramatizing the increasingly urgendemand of the dispossessed among us for a plot ofearth as their place in the sun. library

Recognizing this need, the Constitution in 1935mandated the policy of social justice to "insure thewell-being and economic security of all thepeople," 1 especially the less privileged. In 1973, the

new Constitution affirmed this goal adding specificallythat "the State shall regulate the acquisitionownership, use, enjoyment and disposition of privateproperty and equitably diffuse property ownership andprofits." 2 Significantly, there was also the specificinjunction to "formulate and implement an agrarianreform program aimed at emancipating the tenanfrom the bondage of the soil." 3

The Constitution of 1987 was not to be outdoneBesides echoing these sentiments, it also adopted onewhole and separate Article XIII on Social Justice andHuman Rights, containing grandiose but undoubtedlysincere provisions for the uplift of the common people

These include a call in the following words for theadoption by the State of an agrarian reform program:

SEC. 4. The State shall, by law, undertake an agrarianreform program founded on the right of farmers andregular farmworkers, who are landless, to own directlyor collectively the lands they till or, in the case of otherfarmworkers, to receive a just share of the fruitsthereof. To this end, the State shall encourage andundertake the just distribution of all agricultural landssubject to such priorities and reasonable retentionlimits as the Congress may prescribe, taking intoaccount ecological, developmental, or equityconsiderations and subject to the payment of justcompensation. In determining retention limits, theState shall respect the right of small landowners. TheState shall further provide incentives for voluntaryland-sharing.

Earlier, in fact, R.A. No. 3844, otherwise known as theAgricultural Land Reform Code, had already beenenacted by the Congress of the Philippines on August8, 1963, in line with the above-stated principles. Thiswas substantially superseded almost a decade later byP.D. No. 27, which was promulgated on October 211972, along with martial law, to provide for thecompulsory acquisition of private lands for distribution



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among tenant-farmers and to specify maximumretention limits for landowners. library

The people power revolution of 1986 did not changeand indeed even energized the thrust for agrarianreform. Thus, on July 17, 1987, President Corazon C.Aquino issued E.O. No. 228, declaring full landownership in favor of the beneficiaries of P.D. No. 27

and providing for the valuation of still unvalued landscovered by the decree as well as the manner of theirpayment. This was followed on July 22, 1987 byPresidential Proclamation No. 131, instituting acomprehensive agrarian reform program (CARP), andE.O. No. 229, providing the mechanics for itsimplementation. library

Subsequently, with its formal organization, the revivedCongress of the Philippines took over legislative powerfrom the President and started its own deliberations,including extensive public hearings, on theimprovement of the interests of farmers. The result,after almost a year of spirited debate, was theenactment of R.A. No. 6657, otherwise known as theComprehensive Agrarian Reform Law of 1988, whichPresident Aquino signed on June 10, 1988. This law,while considerably changing the earlier mentionedenactments, nevertheless gives them suppletory effectinsofar as they are not inconsistent with itsprovisions. 4 library

The above-captioned cases have been consolidatedbecause they involve common legal questions,including serious challenges to the constitutionality of the several measures mentioned above. They will bethe subject of one common discussion and resolution, The different antecedents of each case will requireseparate treatment, however, and will first be

explained hereunder. library

G.R. No. 79777 library

Squarely raised in this petition is the constitutionalityof P.D. No. 27, E.O. Nos. 228 and 229, and R.A. No.6657.

The subjects of this petition are a 9-hectare ricelandworked by four tenants and owned by petitionerNicolas Manaay and his wife and a 5-hectare ricelandworked by four tenants and owned by petitionerAugustin Hermano, Jr. The tenants were declared full

owners of these lands by E.O. No. 228 as qualifiedfarmers under P.D. No. 27.

The petitioners are questioning P.D. No. 27 and E.O.Nos. 228 and 229 on grounds inter alia of separation of powers, due process, equal protection and theconstitutional limitation that no private property shallbe taken for public use without just compensation.library

They contend that President Aquino usurped legislativepower when she promulgated E.O. No. 228. The saidmeasure is invalid also for violation of Article XIII,

Section 4, of the Constitution, for failure to provide forretention limits for small landowners. Moreover, it doesnot conform to Article VI, Section 25(4) and the otherrequisites of a valid appropriation.

In connection with the determination of juscompensation, the petitioners argue that the samemay be made only by a court of justice and not by the

President of the Philippines. They invoke the recencases of EPZA v. Dulay 5andManotok v. National Food Authority. 6 Moreover, the just compensationcontemplated by the Bill of Rights is payable in moneyor in cash and not in the form of bonds or other thingsof value. library

In considering the rentals as advance payment on theland, the executive order also deprives the petitionersof their property rights as protected by due process The equal protection clause is also violated becausethe order places the burden of solving the agrarianproblems on the owners only of agricultural lands. Nosimilar obligation is imposed on the owners of otherproperties. library

The petitioners also maintain that in declaring thebeneficiaries under P.D. No. 27 to be the owners of thelands occupied by them, E.O. No. 228 ignored judiciaprerogatives and so violated due process. Worse, themeasure would not solve the agrarian problembecause even the small farmers are deprived of theirlands and the retention rights guaranteed by theConstitution.

In his Comment, the Solicitor General stresses that P.DNo. 27 has already been upheld in the earlier casesof Chavez v. Zobel, 7Gonzales v. Estrella, 8and Association of Rice and Corn Producers of thePhilippines, Inc. v. The National Land ReformCouncil. 9 The determination of just compensation bythe executive authorities conformably to the formulaprescribed under the questioned order is at best initiaor preliminary only. It does not foreclose judiciaintervention whenever sought or warranted. At anyrate, the challenge to the order is premature becauseno valuation of their property has as yet been made bythe Department of Agrarian Reform. The petitionersare also not proper parties because the lands owned bythem do not exceed the maximum retention limit of 7hectares. library

Replying, the petitioners insist they are proper parties

because P.D. No. 27 does not provide for retentionlimits on tenanted lands and that in any event theirpetition is a class suit brought in behalf of landownerswith landholdings below 24 hectares. They maintainthat the determination of just compensation by theadministrative authorities is a final ascertainment. Asfor the cases invoked by the public respondent, theconstitutionality of P.D. No. 27 was merely assumedin Chavez , while what was decided in Gonzales was thevalidity of the imposition of martial law.

In the amended petition dated November 22, 1588, it iscontended that P.D. No. 27, E.O. Nos. 228 and 229



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(except Sections 20 and 21) have been impliedlyrepealed by R.A. No. 6657. Nevertheless, this statuteshould itself also be declared unconstitutional becauseit suffers from substantially the same infirmities as theearlier measures.

A petition for intervention was filed with leave of courton June 1, 1988 by Vicente Cruz, owner of a 1. 83-

hectare land, who complained that the DAR wasinsisting on the implementation of P.D. No. 27 and E.O.No. 228 despite a compromise agreement he hadreached with his tenant on the payment of rentals. In asubsequent motion dated April 10, 1989, he adoptedthe allegations in the basic amended petition that theabove- mentioned enactments have been impliedlyrepealed by R.A. No. 6657.


The petitioners herein are landowners and sugarplanters in the Victorias Mill District, Victorias, NegrosOccidental. Co-petitioner Planters' Committee, Inc. is

an organization composed of 1,400 planter-members. This petition seeks to prohibit the implementation of Proc. No. 131 and E.O. No. 229. The petitioners claimthat the power to provide for a ComprehensiveAgrarian Reform Program as decreed by theConstitution belongs to Congress and not thePresident. Although they agree that the President couldexercise legislative power until the Congress wasconvened, she could do so only to enact emergencymeasures during the transition period. At that, evenassuming that the interim legislative power of thePresident was properly exercised, Proc. No. 131 andE.O. No. 229 would still have to be annulled forviolating the constitutional provisions on justcompensation, due process, and equal protection.

library

They also argue that under Section 2 of Proc. No. 131which provides: library

Agrarian Reform Fund.-There is hereby created aspecial fund, to be known as the Agrarian Reform Fund,an initial amount of FIFTY BILLION PESOS(P50,000,000,000.00) to cover the estimated cost of the Comprehensive Agrarian Reform Program from1987 to 1992 which shall be sourced from the receiptsof the sale of the assets of the Asset Privatization Trustand Receipts of sale of ill-gotten wealth receivedthrough the Presidential Commission on Good

Government and such other sources as governmentmay deem appropriate. The amounts collected andaccruing to this special fund shall be consideredautomatically appropriated for the purpose authorizedin this Proclamation the amount appropriated is infuturo, not in esse. The money needed to cover thecost of the contemplated expropriation has yet to beraised and cannot be appropriated at this time.

Furthermore, they contend that taking must besimultaneous with payment of just compensation as itis traditionally understood, i.e., with money and in full,but no such payment is contemplated in Section 5 of

the E.O. No. 229. On the contrary, Section 6, thereofprovides that the Land Bank of the Philippines "shalcompensate the landowner in an amount to beestablished by the government, which shall be basedon the owner's declaration of current fair market valueas provided in Section 4 hereof, but subject to certaincontrols to be defined and promulgated by thePresidential Agrarian Reform Council." Thiscompensation may not be paid fully in money but in

any of several modes that may consist of part cash andpart bond, with interest, maturing periodically, or directpayment in cash or bond as may be mutually agreedupon by the beneficiary and the landowner or as maybe prescribed or approved by the PARC. library

The petitioners also argue that in the issuance of thetwo measures, no effort was made to make a carefustudy of the sugar planters' situation. There is notenancy problem in the sugar areas that can justify theapplication of the CARP to them. To the extent that thesugar planters have been lumped in the samelegislation with other farmers, although they are aseparate group with problems exclusively their own

their right to equal protection has been violatedlibrary

A motion for intervention was filed on August 27,1987by the National Federation of Sugarcane Planters(NASP) which claims a membership of at least 20,000individual sugar planters all over the country. OnSeptember 10, 1987, another motion for interventionwas filed, this time by Manuel Barcelona, et al.representing coconut and riceland owners. Bothmotions were granted by the Court.

NASP alleges that President Aquino had no authority tofund the Agrarian Reform Program and that, in any

event, the appropriation is invalid because ofuncertainty in the amount appropriated. Section 2 ofProc. No. 131 and Sections 20 and 21 of E.O. No. 229provide for an initial appropriation of fifty billion pesosand thus specifies the minimum rather than themaximum authorized amount. This is not allowedFurthermore, the stated initial amount has not beencertified to by the National Treasurer as actuallyavailable. library

Two additional arguments are made by Barcelona, towit, the failure to establish by clear and convincingevidence the necessity for the exercise of the powersof eminent domain, and the violation of the

fundamental right to own property.

The petitioners also decry the penalty for nonregistration of the lands, which is the expropriation ofthe said land for an amount equal to the governmentassessor's valuation of the land for tax purposes. Onthe other hand, if the landowner declares his ownvaluation he is unjustly required to immediately paythe corresponding taxes on the land, in violation of theuniformity rule.

In his consolidated Comment, the Solicitor General firstinvokes the presumption of constitutionality in favor of



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Proc. No. 131 and E.O. No. 229. He also justifies thenecessity for the expropriation as explained in the"whereas" clauses of the Proclamation and submitsthat, contrary to the petitioner's contention, a pilotproject to determine the feasibility of CARP and ageneral survey on the people's opinion thereon are notindispensable prerequisites to its promulgation. library

On the alleged violation of the equal protection clause,the sugar planters have failed to show that they belongto a different class and should be differently treated. The Comment also suggests the possibility of Congressfirst distributing public agricultural lands andscheduling the expropriation of private agriculturallands later. From this viewpoint, the petition forprohibition would be premature. library

The public respondent also points out that theconstitutional prohibition is against the payment of public money without the corresponding appropriation. There is no rule that only money already in existencecan be the subject of an appropriation law. Finally, theearmarking of fifty billion pesos as Agrarian ReformFund, although denominated as an initial amount, isactually the maximum sum appropriated. The word"initial" simply means that additional amounts may beappropriated later when necessary.

On April 11, 1988, Prudencio Serrano, a coconutplanter, filed a petition on his own behalf, assailing theconstitutionality of E.O. No. 229. In addition to thearguments already raised, Serrano contends that themeasure is unconstitutional because:

(1) Only public lands should be included in the CARP;library

(2) E.O. No. 229 embraces more than one subjectwhich is not expressed in the title;

(3) The power of the President to legislate wasterminated on July 2, 1987; and

(4) The appropriation of a P50 billion special fund fromthe National Treasury did not originate from the Houseof Representatives.


The petitioner alleges that the then Secretary of Department of Agrarian Reform, in violation of dueprocess and the requirement for just compensation,placed his landholding under the coverage of Operation Land Transfer. Certificates of Land Transferwere subsequently issued to the private respondents,who then refused payment of lease rentals to him.library

On September 3, 1986, the petitioner protested theerroneous inclusion of his small landholding underOperation Land transfer and asked for the recall andcancellation of the Certificates of Land Transfer in thename of the private respondents. He claims that on

December 24, 1986, his petition was denied withouthearing. On February 17, 1987, he filed a motion forreconsideration, which had not been acted upon whenE.O. Nos. 228 and 229 were issued. These ordersrendered his motion moot and academic because theydirectly effected the transfer of his land to the privaterespondents.

The petitioner now argues that:

(1) E.O. Nos. 228 and 229 were invalidly issued by thePresident of the Philippines.

(2) The said executive orders are violative of theconstitutional provision that no private property shalbe taken without due process or just compensation.

(3) The petitioner is denied the right of maximumretention provided for under the 1987 Constitution.

The petitioner contends that the issuance of E.0. Nos228 and 229 shortly before Congress convened isanomalous and arbitrary, besides violating the doctrineof separation of powers. The legislative power grantedto the President under the Transitory Provisions refersonly to emergency measures that may be promulgatedin the proper exercise of the police power.

The petitioner also invokes his rights not to bedeprived of his property without due process of lawand to the retention of his small parcels of riceholdingas guaranteed under Article XIII, Section 4 of theConstitution. He likewise argues that, besides denyinghim just compensation for his land, the provisions ofE.O. No. 228 declaring that:

Lease rentals paid to the landowner by the farmerbeneficiary after October 21, 1972 shall be consideredas advance payment for the land.

is an unconstitutional taking of a vested property rightIt is also his contention that the inclusion of even smallandowners in the program along with othelandowners with lands consisting of seven hectares omore is undemocratic. In his Comment, the SolicitorGeneral submits that the petition is premature becausethe motion for reconsideration filed with the Minister ofAgrarian Reform is still unresolved. As for the validityof the issuance of E.O. Nos. 228 and 229, he arguesthat they were enacted pursuant to Section 6, Article

XVIII of the Transitory Provisions of the 1987Constitution which reads: library

The incumbent president shall continue to exerciselegislative powers until the first Congress is convened.

On the issue of just compensation, his position is thatwhen P.D. No. 27 was promulgated on October 211972, the tenant-farmer of agricultural land wasdeemed the owner of the land he was tilling. Theleasehold rentals paid after that date should thereforebe considered amortization payments.



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In his Reply to the public respondents, the petitionermaintains that the motion he filed was resolved onDecember 14, 1987. An appeal to the Office of thePresident would be useless with the promulgation of E.O. Nos. 228 and 229, which in effect sanctioned thevalidity of the public respondent's acts.


The petitioners in this case invoke the right of retentiongranted by P.D. No. 27 to owners of rice and corn landsnot exceeding seven hectares as long as they arecultivating or intend to cultivate the same. Theirrespective lands do not exceed the statutory limit butare occupied by tenants who are actually cultivatingsuch lands.

According to P.D. No. 316, which was promulgated inimplementation of P.D. No. 27:

No tenant-farmer in agricultural lands primarilydevoted to rice and corn shall be ejected or removed

from his farmholding until such time as the respectiverights of the tenant- farmers and the landowner shallhave been determined in accordance with the rulesand regulations implementing P.D. No. 27.

The petitioners claim they cannot eject their tenantsand so are unable to enjoy their right of retentionbecause the Department of Agrarian Reform has so farnot issued the implementing rules required under theabove-quoted decree. They therefore ask the Court fora writ of mandamus to compel the respondent to issuethe said rules. library

In his Comment, the public respondent argues that P.D.

No. 27 has been amended by LOI 474 removing anyright of retention from persons who own otheragricultural lands of more than 7 hectares in aggregatearea or lands used for residential, commercial,industrial or other purposes from which they deriveadequate income for their family. And even assumingthat the petitioners do not fall under its terms, theregulations implementing P.D. No. 27 have alreadybeen issued, to wit, the Memorandum dated July 10,1975 (Interim Guidelines on Retention by SmallLandowners, with an accompanying Retention Guide Table), Memorandum Circular No. 11 dated April 21,1978, (Implementation Guidelines of LOI No. 474),Memorandum Circular No. 18-81 dated December

29,1981 (Clarificatory Guidelines on Coverage of P.D.No. 27 and Retention by Small Landowners), and DARAdministrative Order No. 1, series of 1985 (Providingfor a Cut-off Date for Landowners to Apply forRetention and/or to Protest the Coverage of theirLandholdings under Operation Land Transfer pursuantto P.D. No. 27). For failure to file the correspondingapplications for retention under these measures, thepetitioners are now barred from invoking this right.

The public respondent also stresses that the petitionershave prematurely initiated this case notwithstandingthe pendency of their appeal to the President of thePhilippines. Moreover, the issuance of the

implementing rules, assuming this has not yet beendone, involves the exercise of discretion which cannotbe controlled through the writ of mandamus. This isespecially true if this function is entrusted, as in thiscase, to a separate department of the governmentlibrary

In their Reply, the petitioners insist that the above

cited measures are not applicable to them becausethey do not own more than seven hectares oagricultural land. Moreover, assuming arguendo thathe rules were intended to cover them also, the saidmeasures are nevertheless not in force because theyhave not been published as required by law and theruling of this Court in Tanada v. Tuvera. 10 As for LO474, the same is ineffective for the additional reasonthat a mere letter of instruction could not haverepealed the presidential decree.

I library

Although holding neither purse nor sword and so

regarded as the weakest of the three departments ofthe government, the judiciary is nonetheless vestedwith the power to annul the acts of either thelegislative or the executive or of both when notconformable to the fundamental law. This is the reasonfor what some quarters call the doctrine of judiciasupremacy. Even so, this power is not lightly assumedor readily exercised. The doctrine of separation opowers imposes upon the courts a proper restraintborn of the nature of their functions and of theirespect for the other departments, in striking down theacts of the legislative and the executive asunconstitutional. The policy, indeed, is a blend ocourtesy and caution. To doubt is to sustain. Thetheory is that before the act was done or the law was

enacted, earnest studies were made by Congress orthe President, or both, to insure that the Constitutionwould not be breached. library

In addition, the Constitution itself lays down stringentconditions for a declaration of unconstitutionalityrequiring therefor the concurrence of a majority of themembers of the Supreme Court who took part in thedeliberations and voted on the issue during theisession en banc. 11 And as established by judge madedoctrine, the Court will assume jurisdiction over aconstitutional question only if it is shown that theessential requisites of a judicial inquiry into such aquestion are first satisfied. Thus, there must be an

actual case or controversy involving a conflict of legarights susceptible of judicial determination, theconstitutional question must have been opportunelyraised by the proper party, and the resolution of thequestion is unavoidably necessary to the decision ofthe case itself. 12 library

With particular regard to the requirement of propeparty as applied in the cases before us, we hold thatthe same is satisfied by the petitioners and intervenorsbecause each of them has sustained or is in danger ofsustaining an immediate injury as a result of the actsor measures complained of. 13And even if, strictly



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speaking, they are not covered by the definition, it isstill within the wide discretion of the Court to waive therequirement and so remove the impediment to itsaddressing and resolving the serious constitutionalquestions raised. library

In the first Emergency Powers Cases, 14 ordinarycitizens and taxpayers were allowed to question the

constitutionality of several executive orders issued byPresident Quirino although they were invoking only anindirect and general interest shared in common withthe public. The Court dismissed the objection that theywere not proper parties and ruled that "thetranscendental importance to the public of these casesdemands that they be settled promptly and definitely,brushing aside, if we must, technicalities of procedure."We have since then applied this exception in manyother cases. 15

The other above-mentioned requisites have also beenmet in the present petitions.

In must be stressed that despite the inhibitionspressing upon the Court when confronted withconstitutional issues like the ones now before it, it willnot hesitate to declare a law or act invalid when it isconvinced that this must be done. In arriving at thisconclusion, its only criterion will be the Constitution asGod and its conscience give it the light to probe itsmeaning and discover its purpose. Personal motivesand political considerations are irrelevancies thatcannot influence its decision. Blandishment is asineffectual as intimidation.

For all the awesome power of the Congress and theExecutive, the Court will not hesitate to "make thehammer fall, and heavily," to use Justice Laurel's pithylanguage, where the acts of these departments, or of any public official, betray the people's will asexpressed in the Constitution.

It need only be added, to borrow again the words of Justice Laurel, that -

... when the judiciary mediates to allocateconstitutional boundaries, it does not assert anysuperiority over the other departments; it does not inreality nullify or invalidate an act of the Legislature, butonly asserts the solemn and sacred obligation assignedto it by the Constitution to determine conflicting claims

of authority under the Constitution and to establish forthe parties in an actual controversy the rights whichthat instrument secures and guarantees to them. Thisis in truth all that is involved in what is termed "judicialsupremacy" which properly is the power of judicialreview under the Constitution. 16

The cases before us categorically raise constitutionalquestions that this Court must categorically resolve.And so we shall.

II

We proceed first to the examination of the preliminaryissues before resolving the more serious challenges tothe constitutionality of the several measures involvedin these petitions.

The promulgation of P.D. No. 27 by President Marcos inthe exercise of his powers under martial law hasalready been sustained in Gonzales v. Estrella and we

find no reason to modify or reverse it on that issue. Asfor the power of President Aquino to promulgate ProcNo. 131 and E.O. Nos. 228 and 229, the same wasauthorized under Section 6 of the Transitory Provisionsof the 1987 Constitution, quoted above.

The said measures were issued by President Aquinobefore July 27, 1987, when the Congress of thePhilippines was formally convened and took ovelegislative power from her. They are not "midnight"enactments intended to pre-empt the legislaturebecause E.O. No. 228 was issued on July 17, 1987, andthe other measures, i.e., Proc. No. 131 and E.O. No229, were both issued on July 22, 1987. Neither is itcorrect to say that these measures ceased to be validwhen she lost her legislative power for, like anystatute, they continue to be in force unless modified orrepealed by subsequent law or declared invalid by thecourts. A statute does not ipso facto becomeinoperative simply because of the dissolution of thelegislature that enacted it. By the same tokenPresident Aquino's loss of legislative power did nothave the effect of invalidating all the measuresenacted by her when and as long as she possessed it.

Significantly, the Congress she is alleged to haveundercut has not rejected but in fact substantiallyaffirmed the challenged measures and has specificallyprovided that they shall be suppletory to R.A. No. 6657

whenever not inconsistent with itsprovisions. 17 Indeed, some portions of the saidmeasures, like the creation of the P50 billion fund inSection 2 of Proc. No. 131, and Sections 20 and 21 ofE.O. No. 229, have been incorporated by reference inthe CARP Law. 18

That fund, as earlier noted, is itself being questionedon the ground that it does not conform to therequirements of a valid appropriation as specified inthe Constitution. Clearly, however, Proc. No. 131 is notan appropriation measure even if it does provide forthe creation of said fund, for that is not its principalpurpose. An appropriation law is one the primary and

specific purpose of which is to authorize the release ofpublic funds from the treasury. 19 The creation of thefund is only incidental to the main objective of theproclamation, which is agrarian reform.

It should follow that the specific constitutionaprovisions invoked, to wit, Section 24 and Section 25(4)of Article VI, are not applicable. With particulareference to Section 24, this obviously could not havebeen complied with for the simple reason that theHouse of Representatives, which now has the exclusivepower to initiate appropriation measures, had not yetbeen convened when the proclamation was issued. The



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legislative power was then solely vested in thePresident of the Philippines, who embodied, as it were,both houses of Congress.

The argument of some of the petitioners that Proc. No.131 and E.O. No. 229 should be invalidated becausethey do not provide for retention limits as required byArticle XIII, Section 4 of the Constitution is no longer

tenable. R.A. No. 6657 does provide for such limits nowin Section 6 of the law, which in fact is one of its mostcontroversial provisions. This section declares:

Retention Limits. - Except as otherwise provided in thisAct, no person may own or retain, directly or indirectly,any public or private agricultural land, the size of whichshall vary according to factors governing a viablefamily-sized farm, such as commodity produced,terrain, infrastructure, and soil fertility as determinedby the Presidential Agrarian Reform Council (PARC)created hereunder, but in no case shall retention bythe landowner exceed five (5) hectares. Three (3)hectares may be awarded to each child of thelandowner, subject to the following qualifications: (1)that he is at least fifteen (15) years of age; and (2) thathe is actually tilling the land or directly managing thefarm; Provided, That landowners whose lands havebeen covered by Presidential Decree No. 27 shall beallowed to keep the area originally retained by themthereunder, further, That original homestead granteesor direct compulsory heirs who still own the originalhomestead at the time of the approval of this Act shallretain the same areas as long as they continue tocultivate said homestead.

The argument that E.O. No. 229 violates theconstitutional requirement that a bill shall have onlyone subject, to be expressed in its title, deserves only

short attention. It is settled that the title of the bill doesnot have to be a catalogue of its contents and willsuffice if the matters embodied in the text are relevantto each other and may be inferred from the title. 20

The Court wryly observes that during the pastdictatorship, every presidential issuance, by whatevername it was called, had the force and effect of lawbecause it came from President Marcos. Such are theways of despots. Hence, it is futile to argue, as thepetitioners do in G.R. No. 79744, that LOI 474 could nothave repealed P.D. No. 27 because the former was onlya letter of instruction. The important thing is that it wasissued by President Marcos, whose word was law

during that time.

But for all their peremptoriness, these issuances fromthe President Marcos still had to comply with therequirement for publication as this Court heldin Tanada v. Tuvera. 21 Hence, unless published in theOfficial Gazette in accordance with Article 2 of the CivilCode, they could not have any force and effect if theywere among those enactments successfully challengedin that case. LOI 474 was published, though, in theOfficial Gazette dated November 29,1976.)

Finally, there is the contention of the public respondentin G.R. No. 78742 that the writ of mandamus cannotissue to compel the performance of a discretionary act,especially by a specific department of the government That is true as a general proposition but is subject toone important qualification. Correctly and categoricallystated, the rule is that mandamus will lie to compel thedischarge of the discretionary duty itself but not tocontrol the discretion to be exercised. In other words,

mandamus can issue to require action only but notspecific action.

Whenever a duty is imposed upon a public official andan unnecessary and unreasonable delay in the exerciseof such duty occurs, if it is a clear duty imposed by law,the courts will intervene by the extraordinary legaremedy of mandamus to compel action. If the duty ispurely ministerial, the courts will require specificaction. If the duty is purely discretionary, the courtsby mandamus will require action only. For example, ifan inferior court, public official, or board should, for anunreasonable length of time, fail to decide a particulaquestion to the great detriment of all parties

concerned, or a court should refuse to take jurisdictionof a cause when the law clearly gave it jurisdictionmandamus will issue, in the first case to require adecision, and in the second to require that jurisdictionbe taken of the cause.22

And while it is true that as a rule the writ will not beproper as long as there is still a plain, speedy andadequate remedy available from the administrativeauthorities, resort to the courts may still be permittedif the issue raised is a question of law. 23

III

There are traditional distinctions between the policepower and the power of eminent domain that logicallypreclude the application of both powers at the sametime on the same subject. In the case of City of Baguiov. NAWASA, 24 for example, where a law required thetransfer of all municipal waterworks systems to theNAWASA in exchange for its assets of equivalent valuethe Court held that the power being exercised waseminent domain because the property involved waswholesome and intended for a public use. Propertycondemned under the police power is noxious ointended for a noxious purpose, such as a building onthe verge of collapse, which should be demolished forthe public safety, or obscene materials, which should

be destroyed in the interest of public morals. Theconfiscation of such property is not compensableunlike the taking of property under the power oexpropriation, which requires the payment of justcompensation to the owner.

In the case of Pennsylvania Coal Co. v.Mahon, 25 Justice Holmes laid down the limits of thepolice power in a famous aphorism: "The general ruleat least is that while property may be regulated to acertain extent, if regulation goes too far it will berecognized as a taking." The regulation that went "toofar" was a law prohibiting mining which might cause



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the subsidence of structures for human habitationconstructed on the land surface. This was resisted by acoal company which had earlier granted a deed to theland over its mine but reserved all mining rightsthereunder, with the grantee assuming all risks andwaiving any damage claim. The Court held the lawcould not be sustained without compensating thegrantor. Justice Brandeis filed a lone dissent in whichhe argued that there was a valid exercise of the police

power. He said:

Every restriction upon the use of property imposed inthe exercise of the police power deprives the owner of some right theretofore enjoyed, and is, in that sense,an abridgment by the State of rights in propertywithout making compensation. But restriction imposedto protect the public health, safety or morals fromdangers threatened is not a taking. The restriction herein question is merely the prohibition of a noxious use. The property so restricted remains in the possession of its owner. The state does not appropriate it or makeany use of it. The state merely prevents the ownerfrom making a use which interferes with paramount

rights of the public. Whenever the use prohibitedceases to be noxious - as it may because of furtherchanges in local or social conditions - the restrictionwill have to be removed and the owner will again befree to enjoy his property as heretofore.

Recent trends, however, would indicate not apolarization but a mingling of the police power and thepower of eminent domain, with the latter being used asan implement of the former like the power of taxation. The employment of the taxing power to achieve apolice purpose has long been accepted. 26As for thepower of expropriation, Prof. John J. Costonis of theUniversity of Illinois College of Law (referring to the

earlier case of Euclid v. Ambler Realty Co., 272 US 365,which sustained a zoning law under the police power)makes the following significant remarks:

Euclid, moreover, was decided in an era when judgeslocated the Police and eminent domain powers ondifferent planets. Generally speaking, they viewedeminent domain as encompassing public acquisition of private property for improvements that would beavailable for public use," literally construed. To thepolice power, on the other hand, they assigned the lessintrusive task of preventing harmful externalities apoint reflected in the Euclid opinion's reliance on ananalogy to nuisance law to bolster its support of

zoning. So long as suppression of a privately authoredharm bore a plausible relation to some legitimate"public purpose," the pertinent measure need haveafforded no compensation whatever. With theprogressive growth of government's involvement inland use, the distance between the two powers hascontracted considerably. Today government oftenemploys eminent domain interchangeably with or as auseful complement to the police power-- a trendexpressly approved in the Supreme Court's 1954decision in Berman v. Parker, which broadened thereach of eminent domain's "public use" test to matchthat of the police power's standard of "publicpurpose." 27

The Berman case sustained a redevelopment projecand the improvement of blighted areas in the Districtof Columbia as a proper exercise of the police powerOn the role of eminent domain in the attainment of thispurpose, Justice Douglas declared:

If those who govern the District of Columbia decidethat the Nation's Capital should be beautiful as well as

sanitary, there is nothing in the Fifth Amendment thatstands in the way.

Once the object is within the authority of Congress, theright to realize it through the exercise of eminentdomain is clear.

For the power of eminent domain is merely the meansto the end. 28

In Penn Central Transportation Co. v. New YorkCity, 29decided by a 6-3 vote in 1978, the U.S SupremeCourt sustained the respondent's LandmarksPreservation Law under which the owners of the Grand

Central Terminal had not been allowed to construct amulti-story office building over the Terminal, which hadbeen designated a historic landmark. Preservation othe landmark was held to be a valid objective of thepolice power. The problem, however, was that theowners of the Terminal would be deprived of the rightto use the airspace above it although other landownersin the area could do so over their respective propertiesWhile insisting that there was here no taking, the Courtnonetheless recognized certain compensatory rightsaccruing to Grand Central Terminal which it said would"undoubtedly mitigate" the loss caused by theregulation. This "fair compensation," as he called itwas explained by Prof. Costonis in this wise:

In return for retaining the Terminal site in its pristinelandmark status, Penn Central was authorized totransfer to neighboring properties the authorized buunused rights accruing to the site prior to the Terminal's designation as a landmark - the rights whichwould have been exhausted by the 59-story buildingthat the city refused to countenance atop the TerminalPrevailing bulk restrictions on neighboring sites wereproportionately relaxed, theoretically enabling PennCentral to recoup its losses at the Terminal site byconstructing or selling to others the right to constructlarger, hence more profitable buildings on thetransferee sites. 30

The cases before us present no knotty complicationinsofar as the question of compensable taking isconcerned. To the extent that the measures undechallenge merely prescribe retention limits folandowners, there is an exercise of the police power fothe regulation of private property in accordance withthe Constitution. But where, to carry out suchregulation, it becomes necessary to deprive suchowners of whatever lands they may own in excess ofthe maximum area allowed, there is definitely a takingunder the power of eminent domain for which paymentof just compensation is imperative. The takingcontemplated is not a mere limitation of the use of the



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land. What is required is the surrender of the title toand the physical possession of the said excess and allbeneficial rights accruing to the owner in favor of thefarmer-beneficiary. This is definitely an exercise not of the police power but of the power of eminent domain.

Whether as an exercise of the police power or of thepower of eminent domain, the several measures before

us are challenged as violative of the due process andequal protection clauses.

The challenge to Proc. No. 131 and E.O. Nos. 228 and299 on the ground that no retention limits areprescribed has already been discussed and dismissed.It is noted that although they excited many bitterexchanges during the deliberation of the CARP Law inCongress, the retention limits finally agreed upon are,curiously enough, not being questioned in thesepetitions. We therefore do not discuss them here. TheCourt will come to the other claimed violations of dueprocess in connection with our examination of theadequacy of just compensation as required under thepower of expropriation.

The argument of the small farmers that they havebeen denied equal protection because of the absenceof retention limits has also become academic underSection 6 of R.A. No. 6657. Significantly, they too havenot questioned the area of such limits. There is also thecomplaint that they should not be made to share theburden of agrarian reform, an objection also made bythe sugar planters on the ground that they belong to aparticular class with particular interests of their own.However, no evidence has been submitted to the Courtthat the requisites of a valid classification have beenviolated.

Classification has been defined as the grouping of persons or things similar to each other in certainparticulars and different from each other in these sameparticulars. 31 To be valid, it must conform to thefollowing requirements: (1) it must be based onsubstantial distinctions; (2) it must be germane to thepurposes of the law; (3) it must not be limited toexisting conditions only; and (4) it must apply equallyto all the members of the class. 32 The Court finds thatall these requisites have been met by the measureshere challenged as arbitrary and discriminatory.

Equal protection simply means that all persons orthings similarly situated must be treated alike both as

to the rights conferred and the liabilitiesimposed. 33 The petitioners have not shown that theybelong to a different class and entitled to a differenttreatment. The argument that not only landowners butalso owners of other properties must be made to sharethe burden of implementing land reform must berejected. There is a substantial distinction betweenthese two classes of owners that is clearly visibleexcept to those who will not see. There is no need toelaborate on this matter. In any event, the Congress isallowed a wide leeway in providing for a validclassification. Its decision is accorded recognition andrespect by the courts of justice except only where its

discretion is abused to the detriment of the Bill oRights.

It is worth remarking at this juncture that a statutemay be sustained under the police power only if thereis a concurrence of the lawful subject and the lawfumethod. Put otherwise, the interests of the publicgenerally as distinguished from those of a particula

class require the interference of the State and, no lessimportant, the means employed are reasonablynecessary for the attainment of the purpose sought tobe achieved and not unduly oppressive uponindividuals. 34As the subject and purpose of agrarianreform have been laid down by the Constitution itselfwe may say that the first requirement has beensatisfied. What remains to be examined is the validityof the method employed to achieve the constitutionagoal.

One of the basic principles of the democratic system isthat where the rights of the individual are concernedthe end does not justify the means. It is not enoughthat there be a valid objective; it is also necessary thatthe means employed to pursue it be in keeping withthe Constitution. Mere expediency will not excuseconstitutional shortcuts. There is no question that noteven the strongest moral conviction or the most urgentpublic need, subject only to a few notable exceptionswill excuse the bypassing of an individual's rights. It isno exaggeration to say that a, person invoking a rightguaranteed under Article III of the Constitution is amajority of one even as against the rest of the nationwho would deny him that right.

That right covers the person's life, his liberty and hisproperty under Section 1 of Article III of theConstitution. With regard to his property, the owne

enjoys the added protection of Section 9, whichreaffirms the familiar rule that private property shalnot be taken for public use without just compensation.

This brings us now to the power of eminent domain.

IV

Eminent domain is an inherent power of the State thatenables it to forcibly acquire private lands intended fopublic use upon payment of just compensation to theowner. Obviously, there is no need to expropriatewhere the owner is willing to sell under terms also

acceptable to the purchaser, in which case an ordinarydeed of sale may be agreed upon by the parties. 35 It isonly where the owner is unwilling to sell, or cannotaccept the price or other conditions offered by thevendee, that the power of eminent domain will comeinto play to assert the paramount authority of the Stateover the interests of the property owner. Private rightsmust then yield to the irresistible demands of thepublic interest on the time-honored justification, as inthe case of the police power, that the welfare of thepeople is the supreme law.

But for all its primacy and urgency, the power oexpropriation is by no means absolute (as indeed no



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power is absolute). The limitation is found in theconstitutional injunction that "private property shall notbe taken for public use without just compensation" andin the abundant jurisprudence that has evolved fromthe interpretation of this principle. Basically, therequirements for a proper exercise of the power are:(1) public use and (2) just compensation.

Let us dispose first of the argument raised by thepetitioners in G.R. No. 79310 that the State should firstdistribute public agricultural lands in the pursuit of agrarian reform instead of immediately disturbingproperty rights by forcibly acquiring private agriculturallands. Parenthetically, it is not correct to say that onlypublic agricultural lands may be covered by the CARPas the Constitution calls for "the just distribution of allagricultural lands." In any event, the decision toredistribute private agricultural lands in the mannerprescribed by the CARP was made by the legislativeand executive departments in the exercise of theirdiscretion. We are not justified in reviewing thatdiscretion in the absence of a clear showing that it hasbeen abused.

A becoming courtesy admonishes us to respect thedecisions of the political departments when theydecide what is known as the political question. Asexplained by Chief Justice Concepcion in the caseof Tañada v. Cuenco: 36

The term "political question" connotes what it means inordinary parlance, namely, a question of policy. Itrefers to "those questions which, under theConstitution, are to be decided by the people in theirsovereign capacity; or in regard to which fulldiscretionary authority has been delegated to thelegislative or executive branch of the government." It is

concerned with issues dependent upon the wisdom,not legality, of a particular measure.

It is true that the concept of the political question hasbeen constricted with the enlargement of judicialpower, which now includes the authority of the courts"to determine whether or not there has been a graveabuse of discretion amounting to lack or excess of jurisdiction on the part of any branch or instrumentalityof the Government." 37Even so, this should not beconstrued as a license for us to reverse the otherdepartments simply because their views may notcoincide with ours.

The legislature and the executive have been seen fit, intheir wisdom, to include in the CARP the redistributionof private landholdings (even as the distribution of public agricultural lands is first provided for, while alsocontinuing apace under the Public Land Act and othercognate laws). The Court sees no justification tointerpose its authority, which we may assert only if webelieve that the political decision is not unwise, butillegal. We do not find it to be so.

In U.S. v. Chandler-Dunbar Water Power Company , 38 itwas held:

Congress having determined, as it did by the Act ofMarch 3,1909 that the entire St. Mary's river betweenthe American bank and the international line, as welas all of the upland north of the present ship canalthroughout its entire length, was "necessary for thepurpose of navigation of said waters, and the watersconnected therewith," that determination is conclusivein condemnation proceedings instituted by the UnitedStates under that Act, and there is no room for judicia

review of the judgment of Congress ... .

As earlier observed, the requirement for public use hasalready been settled for us by the Constitution itself Noless than the 1987 Charter calls for agrarian reformwhich is the reason why private agricultural lands areto be taken from their owners, subject to theprescribed maximum retention limits. The purposesspecified in P.D. No. 27, Proc. No. 131 and R.A. No6657 are only an elaboration of the constitutionainjunction that the State adopt the necessary measures"to encourage and undertake the just distribution of alagricultural lands to enable farmers who are landlessto own directly or collectively the lands they till." That

public use, as pronounced by the fundamental lawitself, must be binding on us.

The second requirement, i.e., the payment of justcompensation, needs a longer and more thoughtfuexamination.

Just compensation is defined as the full and faiequivalent of the property taken from its owner by theexpropriator.39 It has been repeatedly stressed by thisCourt that the measure is not the taker's gain but theowner's loss. 40 The word "just" is used to intensify themeaning of the word "compensation" to convey theidea that the equivalent to be rendered for the

property to be taken shall be real, substantial, fullample. 41

It bears repeating that the measures challenged inthese petitions contemplate more than a mereregulation of the use of private lands under the policepower. We deal here with an actual taking of privateagricultural lands that has dispossessed the owners oftheir property and deprived them of all its beneficiause and enjoyment, to entitle them to the juscompensation mandated by the Constitution.

As held in Republic of the Philippines v.Castellvi, 42 there is compensable taking when the

following conditions concur: (1) the expropriator mustenter a private property; (2) the entry must be fomore than a momentary period; (3) the entry must beunder warrant or color of legal authority; (4) theproperty must be devoted to public use or otherwiseinformally appropriated or injuriously affected; and (5the utilization of the property for public use must be insuch a way as to oust the owner and deprive him ofbeneficial enjoyment of the property. All theserequisites are envisioned in the measures before us.

Where the State itself is the expropriator, it is nonecessary for it to make a deposit upon its taking



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possession of the condemned property, as "thecompensation is a public charge, the good faith of thepublic is pledged for its payment, and all the resourcesof taxation may be employed in raising theamount." 43 Nevertheless, Section 16(e) of the CARPLaw provides that:

Upon receipt by the landowner of the corresponding

payment or, in case of rejection or no response fromthe landowner, upon the deposit with an accessiblebank designated by the DAR of the compensation incash or in LBP bonds in accordance with this Act, theDAR shall take immediate possession of the land andshall request the proper Register of Deeds to issue a Transfer Certificate of Title (TCT) in the name of theRepublic of the Philippines. The DAR shall thereafterproceed with the redistribution of the land to thequalified beneficiaries.

Objection is raised, however, to the manner of fixingthe just compensation, which it is claimed is entrustedto the administrative authorities in violation of judicialprerogatives. Specific reference is made to Section16(d), which provides that in case of the rejection ordisregard by the owner of the offer of the governmentto buy his land-

... the DAR shall conduct summary administrativeproceedings to determine the compensation for theland by requiring the landowner, the LBP and otherinterested parties to submit evidence as to the justcompensation for the land, within fifteen (15) daysfrom the receipt of the notice. After the expiration of the above period, the matter is deemed submitted fordecision. The DAR shall decide the case within thirty(30) days after it is submitted for decision.

To be sure, the determination of just compensation is afunction addressed to the courts of justice and may notbe usurped by any other branch or official of thegovernment. EPZA v. Dulay 44resolved a challenge toseveral decrees promulgated by President Marcosproviding that the just compensation for propertyunder expropriation should be either the assessment of the property by the government or the sworn valuationthereof by the owner, whichever was lower. Indeclaring these decrees unconstitutional, the Courtheld through Mr. Justice Hugo E. Gutierrez, Jr.:

The method of ascertaining just compensation underthe aforecited decrees constitutes impermissible

encroachment on judicial prerogatives. It tends torender this Court inutile in a matter which under thisConstitution is reserved to it for final determination.

Thus, although in an expropriation proceeding thecourt technically would still have the power todetermine the just compensation for the property,following the applicable decrees, its task would berelegated to simply stating the lower value of theproperty as declared either by the owner or theassessor. As a necessary consequence, it would beuseless for the court to appoint commissioners underRule 67 of the Rules of Court. Moreover, the need to

satisfy the due process clause in the taking of privateproperty is seemingly fulfilled since it cannot be saidthat a judicial proceeding was not had before theactual taking. However, the strict application of thedecrees during the proceedings would be nothing shortof a mere formality or charade as the court has only tochoose between the valuation of the owner and that ofthe assessor, and its choice is always limited to thelower of the two. The court cannot exercise its

discretion or independence in determining what is justor fair. Even a grade school pupil could substitute forthe judge insofar as the determination of constitutiona just compensation is concerned.

x x x

In the present petition, we are once again confrontedwith the same question of whether the courts underP.D. No. 1533, which contains the same provision on just compensation as its predecessor decrees, stilhave the power and authority to determine juscompensation, independent of what is stated by thedecree and to this effect, to appoint commissioners forsuch purpose.

This time, we answer in the affirmative.

x x x

It is violative of due process to deny the owner theopportunity to prove that the valuation in the taxdocuments is unfair or wrong. And it is repulsive to thebasic concepts of justice and fairness to allow thehaphazard work of a minor bureaucrat or clerk toabsolutely prevail over the judgment of a courtpromulgated only after expert commissioners have

actually viewed the property, after evidence andarguments pro and con have been presented, and afteall factors and considerations essential to a fair and just determination have been judiciously evaluated.

A reading of the aforecited Section 16(d) will readilyshow that it does not suffer from the arbitrariness thatrendered the challenged decrees constitutionallyobjectionable. Although the proceedings are describedas summary, the landowner and other interestedparties are nevertheless allowed an opportunity tosubmit evidence on the real value of the property. Butmore importantly, the determination of the juscompensation by the DAR is not by any means fina

and conclusive upon the landowner or any otheinterested party, for Section 16(f) clearly provides:

Any party who disagrees with the decision may bringthe matter to the court of proper jurisdiction for finadetermination of just compensation.

The determination made by the DAR is only preliminaryunless accepted by all parties concerned. Otherwisethe courts of justice will still have the right to reviewwith finality the said determination in the exercise ofwhat is admittedly a judicial function.



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The second and more serious objection to theprovisions on just compensation is not as easilyresolved.

This refers to Section 18 of the CARP Law providing infull as follows:

SEC. 18. Valuation and Mode of Compensation. - The

LBP shall compensate the landowner in such amountas may be agreed upon by the landowner and the DARand the LBP, in accordance with the criteria providedfor in Sections 16 and 17, and other pertinentprovisions hereof, or as may be finally determined bythe court, as the just compensation for the land.

The compensation shall be paid in one of the followingmodes, at the option of the landowner:

(1) Cash payment, under the following terms andconditions:

(a) For lands above fifty (50) hectares, insofar as theexcess hectarage is concerned - Twenty-five percent(25%) cash, the balance to be paid in governmentfinancial instruments negotiable at any time.

(b) For lands above twenty-four (24) hectares and up tofifty (50) hectares - Thirty percent (30%) cash, thebalance to be paid in government financial instrumentsnegotiable at any time.

(c) For lands twenty-four (24) hectares and below - Thirty-five percent (35%) cash, the balance to be paidin government financial instruments negotiable at anytime.

(2) Shares of stock in government-owned or controlledcorporations, LBP preferred shares, physical assets orother qualified investments in accordance withguidelines set by the PARC;

(3) Tax credits which can be used against any taxliability;

(4) LBP bonds, which shall have the following features:

(a) Market interest rates aligned with 91-day treasurybill rates. Ten percent (10%) of the face value of thebonds shall mature every year from the date of

issuance until the tenth (10th) year: Provided, Thatshould the landowner choose to forego the cashportion, whether in full or in part, he shall be paidcorrespondingly in LBP bonds;

(b) Transferability and negotiability. Such LBP bondsmay be used by the landowner, his successors-in-interest or his assigns, up to the amount of their facevalue, for any of the following:

(i) Acquisition of land or other real properties of thegovernment, including assets under the AssetPrivatization Program and other assets foreclosed by

government financial institutions in the same provinceor region where the lands for which the bonds werepaid are situated;

(ii) Acquisition of shares of stock of government-ownedor controlled corporations or shares of stock owned bythe government in private corporations;

(iii) Substitution for surety or bail bonds for theprovisional release of accused persons, or foperformance bonds;

(iv) Security for loans with any government financiainstitution, provided the proceeds of the loans shall beinvested in an economic enterprise, preferably in asmall and medium- scale industry, in the sameprovince or region as the land for which the bonds arepaid;

(v) Payment for various taxes and fees to governmentProvided, That the use of these bonds for thesepurposes will be limited to a certain percentage of the

outstanding balance of the financial instrumentsProvided, further, That the PARC shall determine thepercentages mentioned above;

(vi) Payment for tuition fees of the immediate family othe original bondholder in government universitiescolleges, trade schools, and other institutions;

(vii) Payment for fees of the immediate family of theoriginal bondholder in government hospitals; and

(viii) Such other uses as the PARC may from time totime allow.

The contention of the petitioners in G.R. No. 79777 isthat the above provision is unconstitutional insofar as itrequires the owners of the expropriated properties toaccept just compensation therefor in less than moneywhich is the only medium of payment allowed. Insupport of this contention, they cite jurisprudenceholding that:

The fundamental rule in expropriation matters is thatthe owner of the property expropriated is entitled to a just compensation, which should be neither more noless, whenever it is possible to make the assessment,than the money equivalent of said property. Just

compensation has always been understood to be the just and complete equivalent of the loss which theowner of the thing expropriated has to suffer by reasonof the expropriation . 45 (Emphasis supplied.)

In J.M. Tuazon Co. v. Land Tenure Administration, 46 thisCourt held:

It is well-settled that just compensation means theequivalent for the value of the property at the time ofits taking. Anything beyond that is more, and anythingshort of that is less, than just compensation. It means afair and full equivalent for the loss sustained, which is



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the measure of the indemnity, not whatever gain wouldaccrue to the expropriating entity. The market value of the land taken is the just compensation to which theowner of condemned property is entitled, the marketvalue being that sum of money which a persondesirous, but not compelled to buy, and an owner,willing, but not compelled to sell, would agree on as aprice to be given and received for such property.(Emphasis supplied.)

In the United States, where much of our jurisprudenceon the subject has been derived, the weight of authority is also to the effect that just compensationfor property expropriated is payable only in money andnot otherwise. Thus -

The medium of payment of compensation is readymoney or cash. The condemnor cannot compel theowner to accept anything but money, nor can theowner compel or require the condemnor to pay him onany other basis than the value of the property inmoney at the time and in the manner prescribed by theConstitution and the statutes. When the power of eminent domain is resorted to, there must be astandard medium of payment, binding upon bothparties, and the law has fixed that standard as moneyin cash. 47(Emphasis supplied.)

Part cash and deferred payments are not and cannot,in the nature of things, be regarded as a reliable andconstant standard of compensation. 48

"Just compensation" for property taken bycondemnation means a fair equivalent in money, whichmust be paid at least within a reasonable time afterthe taking, and it is not within the power of theLegislature to substitute for such payment futureobligations, bonds, or other valuableadvantage.49(Emphasis supplied.)

It cannot be denied from these cases that thetraditional medium for the payment of justcompensation is money and no other. And so,conformably, has just compensation been paid in thepast solely in that medium. However, we do not dealhere with the traditional excercise of the power of eminent domain. This is not an ordinary expropriationwhere only a specific property of relatively limited areais sought to be taken by the State from its owner for aspecific and perhaps local purpose.

What we deal with here is a revolutionary kind of expropriation.

The expropriation before us affects all privateagricultural lands whenever found and of whateverkind as long as they are in excess of the maximumretention limits allowed their owners. This kind of expropriation is intended for the benefit not only of aparticular community or of a small segment of thepopulation but of the entire Filipino nation, from alllevels of our society, from the impoverished farmer tothe land-glutted owner. Its purpose does not cover onlythe whole territory of this country but goes beyond in

time to the foreseeable future, which it hopes to secureand edify with the vision and the sacrifice of thepresent generation of Filipinos. Generations yet tocome are as involved in this program as we are todayalthough hopefully only as beneficiaries of a richer andmore fulfilling life we will guarantee to them tomorrowthrough our thoughtfulness today. And, finally, let itnot be forgotten that it is no less than the Constitutionitself that has ordained this revolution in the farms

calling for "a just distribution" among the farmers oflands that have heretofore been the prison of theidreams but can now become the key at least to theirdeliverance.

Such a program will involve not mere millions of pesos The cost will be tremendous. Considering the vastareas of land subject to expropriation under the lawsbefore us, we estimate that hundreds of billions opesos will be needed, far more indeed than the amountof P50 billion initially appropriated, which is alreadystaggering as it is by our present standards. Suchamount is in fact not even fully available at this time.

We assume that the framers of the Constitution wereaware of this difficulty when they called for agrarianreform as a top priority project of the government. It isa part of this assumption that when they envisionedthe expropriation that would be needed, they alsointended that the just compensation would have to bepaid not in the orthodox way but a less conventional ifmore practical method. There can be no doubt thatthey were aware of the financial limitations of thegovernment and had no illusions that there would beenough money to pay in cash and in full for the landsthey wanted to be distributed among the farmers. Wemay therefore assume that their intention was to allowsuch manner of payment as is now provided for by the

CARP Law, particularly the payment of the balance (ifthe owner cannot be paid fully with money), or indeedof the entire amount of the just compensation, withother things of value. We may also suppose that whatthey had in mind was a similar scheme of payment asthat prescribed in P.D. No. 27, which was the law inforce at the time they deliberated on the new Charteand with which they presumably agreed in principle.

The Court has not found in the records of theConstitutional Commission any categorical agreementamong the members regarding the meaning to begiven the concept of just compensation as applied tothe comprehensive agrarian reform program being

contemplated. There was the suggestion to "fine tune"the requirement to suit the demands of the projecteven as it was also felt that they should "leave it toCongress" to determine how payment should be madeto the landowner and reimbursement required from thefarmer-beneficiaries. Such innovations as "progressivecompensation" and "State-subsidized compensation"were also proposed. In the end, however, no speciadefinition of the just compensation for the lands to beexpropriated was reached by the Commission. 50

On the other hand, there is nothing in the recordseither that militates against the assumptions we aremaking of the general sentiments and intention of the



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members on the content and manner of the paymentto be made to the landowner in the light of themagnitude of the expenditure and the limitations of theexpropriator.

With these assumptions, the Court hereby declaresthat the content and manner of the just compensationprovided for in the afore- quoted Section 18 of the

CARP Law is not violative of the Constitution. We donot mind admitting that a certain degree of pragmatism has influenced our decision on this issue,but after all this Court is not a cloistered institutionremoved from the realities and demands of society oroblivious to the need for its enhancement. The Court isas acutely anxious as the rest of our people to see thegoal of agrarian reform achieved at last after thefrustrations and deprivations of our peasant massesduring all these disappointing decades. We are awarethat invalidation of the said section will result in thenullification of the entire program, killing the farmer'shopes even as they approach realization andresurrecting the spectre of discontent and dissent inthe restless countryside. That is not in our view the

intention of the Constitution, and that is not what weshall decree today.

Accepting the theory that payment of the justcompensation is not always required to be made fullyin money, we find further that the proportion of cashpayment to the other things of value constituting thetotal payment, as determined on the basis of the areasof the lands expropriated, is not unduly oppressiveupon the landowner. It is noted that the smaller theland, the bigger the payment in money, primarilybecause the small landowner will be needing it morethan the big landowners, who can afford a biggerbalance in bonds and other things of value. No less

importantly, the government financial instrumentsmaking up the balance of the payment are "negotiableat any time." The other modes, which are likewiseavailable to the landowner at his option, are also notunreasonable because payment is made in shares of stock, LBP bonds, other properties or assets, taxcredits, and other things of value equivalent to theamount of just compensation.

Admittedly, the compensation contemplated in the lawwill cause the landowners, big and small, not a littleinconvenience. As already remarked, this cannot beavoided. Nevertheless, it is devoutly hoped that thesecountrymen of ours, conscious as we know they are of

the need for their forebearance and even sacrifice, willnot begrudge us their indispensable share in theattainment of the ideal of agrarian reform. Otherwise,our pursuit of this elusive goal will be like the quest forthe Holy Grail.

The complaint against the effects of non-registration of the land under E.O. No. 229 does not seem to be viableany more as it appears that Section 4 of the said Orderhas been superseded by Section 14 of the CARP Law. This repeats the requisites of registration as embodiedin the earlier measure but does not provide, as thelatter did, that in case of failure or refusal to registerthe land, the valuation thereof shall be that given by

the provincial or city assessor for tax purposes. On thecontrary, the CARP Law says that the justcompensation shall be ascertained on the basis of thefactors mentioned in its Section 17 and in the mannerprovided for in Section 16.

The last major challenge to CARP is that the landowneis divested of his property even before actual payment

to him in full of just compensation, in contravention ofa well- accepted principle of eminent domain.

The recognized rule, indeed, is that title to the propertyexpropriated shall pass from the owner to theexpropriator only upon full payment of the justcompensation. Jurisprudence on this settled principle isconsistent both here and in other democratic jurisdictions. Thus:

Title to property which is the subject of condemnationproceedings does not vest the condemnor until the judgment fixing just compensation is entered and paidbut the condemnor's title relates back to the date on

which the petition under the Eminent Domain Act, orthe commissioner's report under the LocaImprovement Act, is filed. 51

... although the right to appropriate and use land takenfor a canal is complete at the time of entry, title to theproperty taken remains in the owner until payment isactually made. 52(Emphasis supplied.)

In Kennedy v. Indianapolis, 53 the US Supreme Courcited several cases holding that title to property doesnot pass to the condemnor until just compensation hadactually been made. In fact, the decisions appear to beuniformly to this effect. As early as 1838, in Rubottom

v. McLure,54

it was held that "actual payment to theowner of the condemned property was a conditionprecedent to the investment of the title to the propertyin the State" albeit "not to the appropriation of it topublic use." In Rexford v. Knight, 55 the Court oAppeals of New York said that the construction uponthe statutes was that the fee did not vest in the Stateuntil the payment of the compensation although theauthority to enter upon and appropriate the land wascomplete prior to the payment. Kennedy further saidthat "both on principle and authority the rule is ... thatthe right to enter on and use the property is complete,as soon as the property is actually appropriated underthe authority of law for a public use, but that the titledoes not pass from the owner without his consent,

until just compensation has been made to him."

Our own Supreme Court has heldin Visayan Refining Co. v. Camus and Paredes, 56 that:

If the laws which we have exhibited or cited in thepreceding discussion are attentively examined it will beapparent that the method of expropriation adopted inthis jurisdiction is such as to afford absolutereassurance that no piece of land can be finally andirrevocably taken from an unwilling owner untilcompensation is paid ... . (Emphasis supplied.)



15 | P a g e

It is true that P.D. No. 27 expressly ordered theemancipation of tenant-farmer as October 21, 1972and declared that he shall "be deemed the owner" of aportion of land consisting of a family-sized farm exceptthat "no title to the land owned by him was to beactually issued to him unless and until he had becomea full-fledged member of a duly recognized farmers'cooperative." It was understood, however, that fullpayment of the just compensation also had to be made

first, conformably to the constitutional requirement.

When E.O. No. 228, categorically stated in its Section 1that:

All qualified farmer-beneficiaries are now deemed fullowners as of October 21, 1972 of the land theyacquired by virtue of Presidential Decree No. 27.(Emphasis supplied.)

it was obviously referring to lands already validlyacquired under the said decree, after proof of full-fledged membership in the farmers' cooperatives and

full payment of just compensation. Hence, it was alsoperfectly proper for the Order to also provide in itsSection 2 that the "lease rentals paid to the landownerby the farmerbeneficiary after October 21, 1972(pending transfer of ownership after full payment of just compensation), shall be considered as advancepayment for the land."

The CARP Law, for its part, conditions the transfer of possession and ownership of the land to thegovernment on receipt by the landowner of thecorresponding payment or the deposit by the DAR of the compensation in cash or LBP bonds with anaccessible bank. Until then, title also remains with thelandowner. 57 No outright change of ownership iscontemplated either.

Hence, the argument that the assailed measuresviolate due process by arbitrarily transferring titlebefore the land is fully paid for must also be rejected.

It is worth stressing at this point that all rights acquiredby the tenant-farmer under P.D. No. 27, as recognizedunder E.O. No. 228, are retained by him even nowunder R.A. No. 6657. This should counter-balance theexpress provision in Section 6 of the said law that "thelandowners whose lands have been covered byPresidential Decree No. 27 shall be allowed to keep the

area originally retained by them thereunder, further, That original homestead grantees or direct compulsoryheirs who still own the original homestead at the timeof the approval of this Act shall retain the same areasas long as they continue to cultivate said homestead."

In connection with these retained rights, it does notappear in G.R. No. 78742 that the appeal filed by thepetitioners with the Office of the President has alreadybeen resolved. Although we have said that the doctrineof exhaustion of administrative remedies need notpreclude immediate resort to judicial action, there arefactual issues that have yet to be examined on theadministrative level, especially the claim that the

petitioners are not covered by LOI 474 because they donot own other agricultural lands than the subjects oftheir petition.

Obviously, the Court cannot resolve these issues. Inany event, assuming that the petitioners have not yetexercised their retention rights, if any, under P.D. No27, the Court holds that they are entitled to the new

retention rights provided for by R.A. No. 6657, which infact are on the whole more liberal than those grantedby the decree.

V

The CARP Law and the other enactments also involvedin these cases have been the subject of bitter attackfrom those who point to the shortcomings of thesemeasures and ask that they be scrapped entirely. Tobe sure, these enactments are less than perfectindeed, they should be continuously re-examined andrehoned, that they may be sharper instruments for thebetter protection of the farmer's rights. But we have to

start somewhere. In the pursuit of agrarian reform, wedo not tread on familiar ground but grope on terrainfraught with pitfalls and expected difficulties. This isinevitable. The CARP Law is not a tried and testedproject. On the contrary, to use Justice Holmes's words"it is an experiment, as all life is an experiment," andso we learn as we venture forward, and, if necessary,by our own mistakes. We cannot expect perfectionalthough we should strive for it by all meansMeantime, we struggle as best we can in freeing thefarmer from the iron shackles that haveunconscionably, and for so long, fettered his soul to thesoil.

By the decision we reach today, all major legaobstacles to the comprehensive agrarian reformprogram are removed, to clear the way for the truefreedom of the farmer. We may now glimpse the dayhe will be released not only from want but also fromthe exploitation and disdain of the past and from hisown feelings of inadequacy and helplessness. At lasthis servitude will be ended forever. At last the farm onwhich he toils will be his farm. It will be his portion ofthe Mother Earth that will give him not only the staff oflife but also the joy of living. And where once it bred forhim only deep despair, now can he see in it the fruitionof his hopes for a more fulfilling future. Now at last canhe banish from his small plot of earth his insecuritiesand dark resentments and "rebuild in it the music and

the dream."

WHEREFORE, the Court holds as follows:

1. R.A. No. 6657, P.D. No. 27, Proc. No. 131, and E.ONos. 228 and 229 are SUSTAINED against all theconstitutional objections raised in the herein petitions.

2. Title to all expropriated properties shall betransferred to the State only upon full payment ocompensation to their respective owners.



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Assoc of Small Landowners