DEPARTMENT OF AGRARIAN REFORM & PABLO MENDOZA vs. MENDOZA vs. ROMEO ROMEO C. CARRIEDO G.R. No. 176549, January 20, 2016 Facts: On May 23, 1972, pt!t!onr "a#$o Mn%o&a 'Mn%o&a( #ca) t* tnant o+ t* $an% #y v!rtu o+ a Contrato King Pamamuisan cut% Pamamuisan cut% #t-n *!) an% Ro)an Jsus 'Ro)an(, o-nr o+ t* 73.3157 *ctars o+ a/r!cu$tura$ $an%. "ursuant to t* ontrato, Mn%o&a *as #n pay!n/ 25 p!cu$s o+ su/ar vry crop yar as $as rnta$ to Ro)an, !t -as $atr c*an/% to "2,000.00 pr crop yar, t* $an% #!n/ no $on/r %vot% to su/arcan. On Nov)#r 7, 1979, Ro)an %!% $av!n/ t* nt!r 73.3157 *ctars to *!s surv!v!n/ -!+ $#rta onsta$s '$#rta(, an% t*!r t-o sons Mar!o Jsus 'Mar!o( an% nton!o Jsus 'nton!o(. On u/ust 23, 194, nton!o cut% a % o+ trau%!c!a$ uccss!on uccss!on -!t* a!vr o+ R!/*t -*!c* )a% $#rta an% Mar!o coo-nrs coo-nrs !n 8ua$ proport!on o+ t* a/r!cu$tura$ $an% $+t #y Ro)an. On Jun 26, 196, Mar!o so$% appro!)at$y 70.47 *ctars to rspon%nt Ro)o . arr!%o 'arr!%o(. * ara so$% to arr!%o !nc$u%% t* $an% tnant% #y Mn%o&a '+or)!n/ part o+ t* ara covr% #y No. 1760(. Mendoza alleged that the sale took la!e "#tho$t h#s kno"ledge and !onsent. n Jun o+ 1990, arr!%o so$% a$$ o+ t*s $an%*o$%!n/s to t* "op$s; o$untary >o$untary
1( arr!%o !s t* a#so$ut o-nr o+ t* +!v '5( *ctar $an%B 2( Mn%o&a *a% Ano-$%/ o+ t* sa$ #t-n arr!%o an% Mar! Ma r!o o J Jsu sus, s, * *nc nc * !s #o #oun un% % #y t* t* sa sa$ $BB an an% % 3( u to *!s +a!$ur an% r+usa$ to pay t* $as rnta$s, t* tnancy r$at!ons*!p #t-n arr!%o an% Mn%o&a *a% #n tr)!nat%. The Redemption Case On Ju$y 21, 1997, Mn%o&a + !$% a "t!t!on +or R%)pt!on -!t* t* "R. "R. n an Or%r %at% January 15, 2001, t* "R %!s)!ss% *!s pt!t!on on t* /roun%s /roun%s o+ t*!s pn%nt!a an% $acA o+ t* r8u!r% crt!+!cat!on a/a!nst +oru)s*opp!n/. t %!s)!ss% t* pt!t!on so t*at t* pn%!n/ appa$ o+ R= as No. 16390 't* ct)nt cas %!scuss% a#ov( -!t* t* can run !ts +u$$ cours, s!nc !ts outco) partaAs o+ a pru%!c!a$ 8ust!on %tr)!nat!v o+ t* tna#!$!ty o+ Mn%o&a;s r!/*t to r%) t* $an% un%r tnancy. Mn%o&a appa$% to t* R= -*!c* rvrs% t* "R "R Or%r !n a c!s!on %at% Nov)#r 12, 2003. * R= /rant% Mn%o&a r%)pt!on r!/*ts ovr t* $an%. t ru$% t*at at t* t!) arr!%o +!$% *!s co)p$a!nt +or ct)nt on Octo#r 1, 1990, * -as no $on/r t* o-nr o+ t* $an%, *av!n/ so$% t* $an% to "
$an%*o$%!n/s -as tanta)ount to t* rc!s o+ *!s rtnt!on r!/*t, or an act a)ount!n/ to a va$!% -a!vr o+ suc* r!/*t !n accor%anc -!t* app$!ca#$ $a-s an% ur!spru%nc. Co-vr, !t %!% not ru$ -*t*r Mn%o&a -as 8ua$!+!% to # a +ar)r #n+!c!ary o+ t* $an%. * %!spos!t!v port!on o+ t* Or%r ra%s:
prson )ay o-n or rta!n, %!rct$y or !n%!rct$y, any pu#$!c or pr!vat a/r!cu$tura$ $an%, t* s!& o+ -*!c* s*a$$ vary accor%!n/ to +actors /ovrn!n/ a v!a#$ +a)!$y s!& +ar), suc* as co))o%!ty pro%uc%, trra!n, !n+rastructur, an% so!$ +rt!$!ty as %tr)!n% #y t* "rs!%nt!a$ /rar!an R+or) ounc!$ '"R( crat% *run%r, ($t #n no !ase shall %etent#on (* the lando"ne% e9!eed '#)e 12 he!ta%es.
arr!%o +!$% a "t!t!on +or Rv!- -!t* t* assa!$!n/ t* RO Or%r. * rvrs% t* RO, an% %c$ar% t* $an% as Ca%%#edos %eta#ned a%ea. * ru$% t*at t* r!/*t o+ rtnt!on !s a const!tut!ona$$y/uarant% r!/*t, su#ct to crta!n 8ua$!+!cat!ons spc!+!% #y t* $/!s$atur. t srvs to )!t!/at t* ++cts o+ co)pu$sory $an% ac8u!s!t!on #y #a$anc!n/ t* r!/*ts o+ t* $an%o-nr an% t* tnant #y !)p$)nt!n/ t* %octr!n t*at soc!a$ ust!c -as not )ant to prptrat an !nust!c a/a!nst t* $an%o-nr. t *$% t*at arr!%o %!% not co))!t any o+ t* acts -*!c* -ou$% const!tut -a!vr o+ *!s rtnt!on r!/*ts +oun% un%r ct!on 6 o+ R %)!n!strat!v Or%r No. 02, .2003 Cnc t*!s pt!t!on. "t!t!onrs )a!nta!n t*at t* co))!tt% a rvrs!#$ rror !n %c$ar!n/ t* $an% as arr!%o;s rta!n% ara. *y c$a!) t*at "ara/rap* 4, ct!on 6 o+ R No. 6657 pro*!#!ts any sa$, %!spos!t!on, $as, )ana/)nt contract or trans+r o+ possss!on o+ pr!vat $an%s upon ++ct!v!ty o+ t* $a-. *us, R/!ona$ !rctor Rnato Crrra corrct$y o#srv% t*at arr!%o;s act o+ %!spos!n/ *!s a/r!cu$tura$ proprty -ou$% # tanta)ount to *!s rc!s o+ rtnt!on un%r t* $a-. =y v!o$at!n/ t* $a-, arr!%o cou$% no $on/r rta!n -*at -as $+t o+ *!s proprty. Do ru$ ot*r-!s -ou$% # a roun%a#out -ay o+ r-ar%!n/ a $an%o-nr -*o *as v!o$at% t* p$!c!t prov!s!ons o+ t* o)pr*ns!v /rar!an R+or)
Iss$e7 *t*r or not arr!%o *as t* r!/*t to rta!n t* $an%. 8eld7 arr!%o %!% not -a!v *!s r!/*t o+ rtnt!on ovr t* $an%. * 197 onst!tut!on prss$y rco/n!&s $an%o-nr rtnt!on r!/*ts un%r rt!c$ E, ct!on 4, to -!t: Section 4. The State shall, by law, undertake an agrarian reform program founded on the right of farmers and regular farmworkers, who are landless, to own directly or collectively the lands they till or, in the case of other farmworkers, to receive a ust share of the fruits thereof. To this end, the State shall encourage and undertake the just distribution of all agricultural lands, subject to such priorities and reasonable retention limits as the Congress may prescribe, taking into account ecological, developmental, or e!uity considerations, and subect to the payment of ust compensation. "n determining retention limits, the State shall respect the right of small landowners. The State shall further provide incentives for voluntary land#sharing.
R No. 6657 !)p$)nts t*!s %!rct!v, t*us: ct!on 6. $etention %imits. cpt as ot*r-!s prov!%% !n t*!s ct, no
The %#ght to !hoose the a%ea to (e %eta#ned0 "h#!h shall (e !o+a!t o% !ont#g$o$s0 shall e%ta#n to the lando"ne%7 P%o)#ded0 ho"e)e%0 That #n !ase the a%ea sele!ted 'o% %etent#on (* the lando"ne% #s tenanted0 the tenant shall ha)e the ot#on to !hoose "hethe% to %e+a#n the%e#n o% (e a (ene'#!#a%* #n the sa+e o% anothe% ag%#!$lt$%al land "#th s#+#la% o% !o+a%a(le 'eat$%es. n cas t* tnant c*ooss to r)a!n !n t* rta!n% ara, * s*a$$ # cons!%r% a $as*o$%r an% s*a$$ $os *!s r!/*t to # a #n+!c!ary un%r t*!s ct. n cas t* tnant c*ooss to # a #n+!c!ary !n anot*r a/r!cu$tura$ $an%, * $oss *!s r!/*t as a $as*o$%r to t* $an% rta!n% #y t* $an%o-nr. * tnant )ust rc!s t*!s opt!on -!t*!n a pr!o% o+ on '1( yar +ro) t* t!) t* $an%o-nr )an!+sts *!s c*o!c o+ t* ara +or rtnt!on. n a$$ cass, t* scur!ty o+ tnur o+ t* +ar)rs or +ar)-orArs on t* $an% pr!or to t* approva$ o+ t*!s ct s*a$$ # rspct%. The %#ght o' %etent#on #s a !onst#t$t#onall* g$a%anteed %#ght, -*!c* !s su#ct to 8ua$!+!cat!on #y t* $/!s$atur. t srvs to )!t!/at t* ++cts o+ co)pu$sory $an% ac8u!s!t!on #y #a$anc!n/ t* r!/*ts o+ t* $an%o-nr an% t* tnant an% #y !)p$)nt!n/ t* %octr!n t*at soc!a$ ust!c -as not )ant to prptrat an !nust!c a/a!nst t* $an%o-nr. rta!n% ara, as !ts na) %nots, !s $an% -*!c* !s not suppos% to any)or $av t* $an%o-nr;s %o)!n!on, t*us spar!n/ t* /ovrn)nt +ro) t* !nconvn!nc o+ taA!n/ $an% on$y to rturn !t to t* $an%o-nr a+tr-ar%s, -*!c* -ou$% # a po!nt$ss procss. For as $on/ as t* ara to # rta!n% !s co)pact or cont!/uous an% %os not c% t* rtnt!on c!$!n/ o+ +!v '5( *ctars, a $an%o-nr;s c*o!c o+ t* ara to # rta!n% )ust prva!$. ct!on 6 o+ R O 0203 prov!%s +or t* !nstancs -*n a $an%o-nr !s %)% to *av -a!v% *!s r!/*t o+ rtnt!on, to -!t: ct!on 6. &aiver of the $ight of $etention. * $an%o-nr -a!vs *!s r!/*t to rta!n #y co))!tt!n/ any o+ t* +o$$o-!n/ act or o)!ss!on: 6.1
Fa!$ur to )an!+st an !ntnt!on to rc!s *!s r!/*t to rta!n -!t*!n s!ty '60( ca$n%ar %ays +ro) rc!pt o+ not!c o+ R" covra/.
6.2
Fa!$ur to stat suc* !ntnt!on upon o++r to s$$ or app$!cat!on un%r t* >o$untary <(H?!rct "ay)nt c*) '"(H sc*).
6.3
cut!on o+ any %ocu)nt stat!n/ t*at * prss$y -a!vs *!s r!/*t to rta!n. * MRO an%?or "R( an%?or R/!ona$ !rctor s*a$$ attst to t* %u cut!on o+ suc* %ocu)nt.
6.4
cut!on o+ a %andowner Tenant Production 'greement and (armer)s *ndertaking '<"F@( or 'pplication to Purchase and (armer)s *ndertaking '"F@( covr!n/ su#ct proprty.
6.5
ntr!n/ !nto a ><?" or >o$untary O++r to $$ '>O(H #ut +a!$!n/ to )an!+st an !ntnt!on to rc!s *!s r!/*t to rta!n upon +!$!n/ o+ t* app$!cat!on +or ><?" or >O.
6.6
cut!on an% su#)!ss!on o+ any %ocu)nt !n%!cat!n/ t*at * !s consnt!n/ to t* R" covra/ o+ *!s nt!r $an%*o$%!n/.
6.7
"r+or)!n/ any act const!tut!n/ stopp$ #y $ac*s -*!c* !s t* +a!$ur or n/$ct +or an unrasona#$ $n/t* o+ t!) to %o t*at -*!c* * )ay *av %on ar$!r #y rc!s!n/ %u %!$!/nc, -arrant!n/ a prsu)pt!on t*at * a#an%on% *!s r!/*t or %c$!n% to assrt !t.
"t!t!onrs cannot r$y on t* R;s Or%r %at% Octo#r 2, 2002 -*!c* /rant% Mn%o&a;s pt!t!on +or covra/ on t* /roun% t*at arr!%o v!o$at% para/rap* 4 ct!on 6 o+ R No. 6657 +or %!spos!n/ o+ *!s a/r!cu$tura$ $an%, cons8unt$y $os!n/ *!s r!/*t o+ rtnt!on. t t* t!) -*n t* Or%r -as rn%r%,
up to t* t!) -*n !t -as a++!r)% #y t* RO !n !ts Or%r %at% F#ruary 22, 2005, t* app$!ca#$ $a- !s ct!on 6 o+ R 0203. ct!on 6 c$ar$y s*o-s t*at t* %!spos!t!on o+ a/r!cu$tura$ $an% !s not an act const!tut!n/ -a!vr o+ t* r!/*t o+ rtnt!on.
ct!ons 6, 70 an% 73 'a( o+ R No. 6657. "t!t!onrs part!cu$ar$y c!t t) no. 4 o+ t* tat)nt o+ "o$!c!s o+ R O 0506, to -!t:
*us, as corrct$y *$% #y t* , arr!%o DnHvr co))!tt% any o+ t* acts or o)!ss!ons a#ovstat% 'R O 0203(. Not vn t* sa$ )a% #y t* *r!n pt!t!onr !n +avor o+ "
4. *r t* trans+r?sa$ !nvo$vs )or t*an t* +!v '5( *ctars rtnt!on ara, t* trans+r !s cons!%r% v!o$at!v o+ c. 6 o+ R.. No. 6657.
"t!t!onrs c$a!) t*at arr!%o;s a$$/% +a!$ur to rc!s *!s r!/*t o+ rtnt!on a$tr a $on/ pr!o% o+ t!) const!tut% a -a!vr o+ *!s rtnt!on r!/*ts, as nv!s!on% !n t) 6.7 o+ R O 02 03. %!sa/r.
. tat)nt o+ "o$!c!s
n cas o+ )u$t!p$ or sr!s o+ trans+rs?sa$s, t* +!rst +!v '5( *ctars so$%?convy% -!t*out R c$aranc an% t* corrspon%!n/ t!t$s !ssu% #y t* R/!str o+ %s 'RO( !n t* na) o+ t* trans+r s*a$$, $nde% the %#n!#le o' estoel0 (e !ons#de%ed )al#d and shall he t%eated as the t%ans'e%o%:s %eta#ned a%ea #ut !n no cas s*a$$ t* trans+r c% t* +!v*ctar $an%*o$%!n/ c!$!n/ pursuant to ct!ons 6, 70 an% 73'a( o+ R.. No. 6657. nso+ar as t* css ara !s concrn%, t* sa) s*a$$ $!A-!s # covr% cons!%r!n/ t*at t* trans+ror *as no r!/*t o+ %!spos!t!on s!nc R" covra/ *as #n vst% as o+ 15 Jun 19. ny $an%*o$%!n/ st!$$ r/!str% !n t* na) o+ t* $an%o-nr a+tr ar$!r %!spos!t!ons tota$!n/ an a//r/at o+ +!v '5( *ctars can no $on/r # part o+ *!s rtnt!on ara an% t*r+or s*a$$ # covr% un%r R". !t!n/ t*!s prov!s!on, pt!t!onrs ar/u t*at arr!%o $ost *!s r!/*t o+ rtnt!on ovr t* $an% #caus * *a% a$ra%y so$% or %!spos%, a+tr t* ++ct!v!ty o+ R No. 6657, )or t*an +!+ty '50( *ctars o+ $an% !n +avor o+ anot*r.7
ct!on 4. Period to +ercise $ight of $etention under $' --/ 4.1
* $an%o-nr )ay rc!s *!s r!/*t o+ rtnt!on at any t!) #+or rc!pt o+ not!c o+ covra/.
4.2
@n%r t* o)pu$sory c8u!s!t!on '( sc*), t* $an%o-nr s*a$$ rc!s *!s r!/*t o+ rtnt!on -!t*!n s!ty '60( %ays +ro) rc!pt o+ not!c o+ covra/.
4.3
@n%r t* >o$untary O++r to $$ '>O( an% t* >o$untary <(?!rct "ay)nt c*) '"(, t* $an%o-nr s*a$$ rc!s *!s r!/*t o+ rtnt!on s!)u$tanous$y at t* t!) o+ o++r +or sa$ or trans+r.
* +or/o!n/ ru$s /!v arr!%o any t!) #+or rc!pt o+ t* not!c o+ covra/ to rc!s *!s r!/*t o+ rtnt!on, or !+ un%r co)pu$sory ac8u!s!t!on 'as !n t*!s cas(, -!t*!n s!ty '60( %ays +ro) rc!pt o+ t* not!c o+ covra/. * va$!%!ty o+ t* not!c o+ covra/ !s t* vry su#ct o+ t* controvrsy #+or t*!s court. *us, t* pr!o% -!t*!n -*!c* arr!%o s*ou$% rc!s *!s r!/*t o+ rtnt!on cannot co))nc unt!$ +!na$ rso$ut!on o+ t*!s cas. vn assu)!n/ t*at t* pr!o% -!t*!n -*!c* arr!%o cou$% rc!s *!s r!/*t o+ rtnt!on *as co))nc%, arr!%o cannot # sa!% to *av n/$ct% to assrt *!s r!/*t o+ rtnt!on ovr t* $an%. * rcor%s s*o- t*at pr </a$ Rport %at% c)#r 13, 1999 prpar% #y </a$ O++!cr r!$ Rys, arr!%o +!$% an app$!cat!on +or rtnt!on -*!c* -as vn contst% #y "a#$o Mn%o&a;s son, Frnan%o. *ou/* arr!%o su#s8unt$y -!t*%r- *!s app$!cat!on, *!s act o+ +!$!n/ an app$!cat!on +or rtnt!on #$!s t* a$$/at!on t*at * a#an%on% *!s r!/*t o+ rtnt!on or %c$!n% to assrt !t. n t*!r M)oran%u) *o-vr, pt!t!onrs, for the first time, !nvoA stopp$, c!t!n/ R %)!n!strat!v Or%r No. 05 r!s o+ 2006 'R O 0506( to support t*!r ar/u)nt t*at arr!%o -a!v% *!s r!/*t o+ rtnt!on. R O 0506 prov!%s +or t* ru$s an% r/u$at!ons /ovrn!n/ t* ac8u!s!t!on an% %!str!#ut!on o+ a/r!cu$tura$ $an%s su#ct o+ convyancs un%r
n *!s M)oran%u), arr!%o )a!nta!ns t*at pt!t!onrs cannot !nvoA any a%)!n!strat!v r/u$at!on to %+at *!s r!/*t o+ rtnt!on. C ar/us t*at Da%)!n!strat!v r/u$at!on )ust # !n *ar)ony -!t* t* prov!s!ons o+ $a- ot*r-!s t* $attr prva!$s.D0 cannot susta!n pt!t!onrs; ar/u)nt. *!r r$!anc on R O 0506 !s )!sp$ac%. s -!$$ # sn #$o-, no-*r !n t* r$vant prov!s!ons o+ R No. 6657 %os !t !n%!cat t*at a )u$t!p$ or sr!s o+ trans+rs?sa$s o+ $an% -ou$% rsu$t !n t* $oss o+ rtnt!on r!/*ts. N!t*r %o t*y prov!% t*at t* )u$t!p$ or sr!s o+ trans+rs or sa$s a)ounts to t* -a!vr o+ suc* r!/*t. * r$vant port!on o+ ct!on 6 o+ R No. 6657 r+rr% to !n t) no. 4 o+ R O 0506 prov!%s: ct!on 6. $etention %imits. cpt as ot*r-!s prov!%% !n t*!s ct, no prson )ay o-n or rta!n, %!rct$y or !n%!rct$y, any pu#$!c or pr!vat a/r!cu$tura$ $an%, t* s!& o+ -*!c* s*a$$ vary accor%!n/ to +actors /ovrn!n/ a v!a#$ +a)!$ys!& +ar), suc* as t* co))o%!ty pro%uc%, trra!n, !n+rastructur, an% so!$ +rt!$!ty as %tr)!n% #y t* "rs!%nt!a$ /rar!an R+or) ounc!$ '"R( crat% *run%cr, #ut !n no cas s*a$$ rtnt!on #y t* $an%o-nr c% +!v '5( *ctars.
@pon t* ++ct!v!ty o+ t*!s ct, an* sale0 d#sos#t#on0 lease0 +anage+ent0 !ont%a!t o% t%ans'e% o' ossess#on o' %#)ate lands e9e!$ted (* the o%#g#nal lando"ne% #n )#olat#on o' the A!t shall (e n$ll and )o#d7 "rov!%%, *o-vr, *at t*os cut% pr!or to t*!s ct s*a$$ # va$!% on$y -*n r/!str% -!t* t* R/!str o+ %s -!t*!n a pr!o% o+ t*r '3( )ont*s a+tr t* ++ct!v!ty o+ t*!s ct. *ra+tr, a$$ R/!strs o+ %s s*a$$ !n+or) t* part)nt o+ /rar!an R+or) 'R( -!t*!n t*!rty '30( %ays o+ any transact!on !nvo$v!n/ a/r!cu$tura$ $an%s !n css o+ +!v '5( *ctars. ct!on 70 o+ R No. 6657, a$so r+rr% to !n t) no. 4 o+ R O 0506 part$y prov!%s:
* sa$ or %!spos!t!on o+ a/r!cu$tura$ $an%s rta!n% #y a $an%o-nr as a cons8unc o+ ct!on 6 *ro+ s*a$$ # va$!% as $on/ as t* tota$ $an%*o$%!n/s t*at s*a$$ # o-n% #y t* trans+r t*ro+ !nc$us!v o+ t* $an% to # ac8u!r% s*a$$ not c% t* $an%*o$%!n/ c!$!n/s prov!%% +or !n t*!s ct. An* sale o% d#sos#t#on o' ag%#!$lt$%al h#nds a'te% the e''e!t#)#t* o' th#s A!t 'o$nd to (e !ont%a%* to the %o)#s#ons he%eo' shall (e n$ll and )o#d. '+mphasis supplied .( F!na$$y, ct!on 73 'a( o+ R No. 6657 as r+rr% to !n t) No. 4 o+ R O 0506 prov!%s, ct!on 73. Prohibited 'ds and 0missions. * +o$$o-!n/ ar pro*!#!t%:
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* o-nrs*!p or possss!on, +or t* purpos o+ c!rcu)vnt!n/ t* prov!s!ons o+ t*!s ct, o+ a/r!cu$tura$ $an%s !n css o+ t* tota$ rtnt!on $!)!ts or a-ar% c!$!n/s #y any prson, natura$ or ur!%!ca$, cpt t*os un%r co$$ct!v o-nrs*!p #y +ar)r#n+!c!ar!sB
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