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7/27/2019 27 Sta Rosa Realty vs CA
1/9
FIRST DIVISION
[G.R. No. 112526. October 12, 2001]
STA. ROSA REALTY DEVELOPMENT
CORPORATION,petitioner, vs. COURT OF APPEALS, JUAN B.
AMANTE, FRANCISCO L. ANDAL, LUCIA ANDAL, ANDREA P.
AYENDE, LETICIA P. BALAT, FILOMENA B. BATINO, ANICETO
A. BURGOS, JAIME A. BURGOS, FLORENCIA CANUBAS,
LORETO A. CANUBAS, MAXIMO A. CANUBAS, REYNALDO
CARINGAL, QUIRINO C. CASALME, BENIGNO A. CRUZAT,
ELINO A. CRUZAT, GREGORIO F. CRUZAT, RUFINO C.
CRUZAT, SERGIO CRUZAT, SEVERINO F. CRUZAT, VICTORIA
DE SAGUN, SEVERINO DE SAGUN, FELICISIMO A. GONZALES,
FRANCISCO A. GONZALES, GREGORIO GONZALES,
LEODEGARIO N. GONZALES, PASCUAL P. GONZALES,
ROLANDO A. GONZALES, FRANCISCO A. JUANGCO,
GERVACIO A. JUANGCO, LOURDES U. LUNA, ANSELMO M.
MANDANAS, CRISANTO MANDANAS, EMILIO M. MANDANAS,
GREGORIO A. MANDANAS, MARIO G. MANDANAS, TEODORO
MANDANAS, CONSTANCIO B. MARQUEZ, EUGENIO B.
MARQUEZ, ARMANDO P. MATIENZO, DANIEL D. MATIENZO,
MAXIMINO MATIENZO, PACENCIA P. MATIENZO, DOROTEA
L. PANGANIBAN, JUANITO T. PEREZ, MARIANITO T. PEREZ,
SEVERO M. PEREZ, INOCENCIA S. PASQUIZA, BIENVENIDO F.
PETATE, IGNACIO F. PETATE, JUANITO PETATE, PABLO A.
PLATON, PRECILLO V. PLATON, AQUILINO B. SUBOL,
CASIANO T. VILLA, DOMINGO VILLA, JUAN T. VILLA, MARIO
C. VILLA, NATIVIDAD A. VILLA, JACINTA S. ALVARADO,
RODOLFO ANGELES, DOMINGO A. CANUBAS, EDGARDO L.
CASALME, QUIRINO DE LEON, LEONILO M. ENRIQUEZ,
CLAUDIA P. GONZALES, FELISA R. LANGUE, QUINTILLANO
LANGUE, REYNALDO LANGUE, ROMEO S. LANGUE,
BONIFACIO VILLA, ROGELIO AYENDE, ANTONIO B.
FERNANDEZ, ZACARIAS HERRERA, ZACARIAS HERRERA,
REYNARIO U. LAZO, AGAPITO MATIENZO, DIONISIO F.
PETATE, LITO G. REYES, JOSE M. SUBOL, CELESTINO G. TOPI
NO, ROSA C. AMANTE, SOTERA CASALME, REMIGIO M.
SILVERIO, THE SECRETARY OF AGRARIAN REFORM,
DEPARTMENT OF AGRARIAN REFORM ADJUDICATION
BOARD, LAND BANK OF THE PHILIPPINES, REGISTER OF
DEEDS OF LAGUNA, DEPARTMENT OF ENVIRONMENT AND
NATURAL RESOURCES REGIONAL EXECUTIVE DIRECTOR
FOR REGION IV, and REGIONAL AGRARIAN REFORM
OFFICER FOR REGION IV, respondents.
D E C I S I O N
PARDO,J.:
The casebefore the Court is a petition for review on certiorari of the decision
of the Court of Appeals[1]affirming the decision of the Department of Agrarian
Reform Adjudication Board[2](hereafter DARAB) ordering the compulsory
acquisition of petitioners property under the Comprehensive Agrarian Reform
Program (CARP).
Petitioner Sta. Rosa Realty Development Corporation (hereafter, SRRDC) was
the registered owner of two parcels of land, situated at Barangay Casile, Cabuyao,
Laguna covered by TCT Nos. 81949 and 84891, with a total area of 254.6
hectares. According to petitioner, the parcels of land are watersheds, which provide
clean potable water to the Canlubang community, and that ninety (90) light
industries are now located in the area. [3]
Petitioner alleged that respondents usurped its rights over the property, thereby
destroying the ecosystem. Sometime in December 1985, respondents filed a civil
case[4] with the Regional Trial Court, Laguna, seeking an easement of a right of way
to and from Barangay Casile. By way of counterclaim, however, petitioner sought
the ejectment of private respondents.
In October 1986 to August 1987, petitioner filed with the Municipal Trial
Court, Cabuyao, Laguna separate complaints for forcible entry against respondents.[5]
After the filing of the ejectment cases, respondents petitioned the Department
of Agrarian Reform (DAR) for the compulsory acquisition of the SRRDC property
under the CARP.
On August 11, 1989, the Municipal Agrarian Reform Officer (MARO) of
Cabuyao, Laguna issued a notice of coverage to petitioner and invited its officials or
representatives to a conference on August 18, 1989.[6]During the meeting, the
following were present: representatives of petitioner, the Land Bank of the
Philippines, PARCCOM, PARO of Laguna, MARO of Laguna, the BARC Chairman
of Barangay Casile and some potential farmer beneficiaries, who are residents of
Barangay Casile, Cabuyao, Laguna. It was the consensus and recommendation of
the assembly that the landholding of SRRDC be placed under compulsory
acquisition.
On August 17, 1989, petitioner filed with the Municipal Agrarian Reform
Office (MARO), Cabuyao, Laguna a Protest and Objection to the compulsory
acquisition of the property on the ground that the area was not appropriate for
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agricultural purposes. The area was rugged in terrain with slopes of 18% and above
and that the occupants of the land were squatters, who were not entitled to any land
as beneficiaries.[7]
On August 29, 1989, the farmer beneficiaries together with the BARC
chairman answered the protest and objection stating that the slope of the land is not
18% but only 5-10% and that the land is suitable and economically viable for
agricultural purposes, as evidenced by the Certification of the Department of
Agriculture, municipality of Cabuyao, Laguna.[8]
On September 8, 1989, MARO Belen dela Torre made a summary investigation
report and forwarded the Compulsory Acquisition Folder Indorsement (CAFI) to the
Provincial Agrarian Reform Officer (hereafter, PARO).[9]
On September 21, 1989, PARO Durante Ubeda forwarded his endorsement of
the compulsory acquisition to the Secretary of Agrarian Reform.
On November 23, 1989, Acting Director Eduardo C. Visperas of the Bureau of
Land Acquisition and Development, DAR forwarded two (2) Compulsory
Acquisition Claim Folders covering the landholding of SRRDC, covered by TCT
Nos. T-81949 and T-84891 to the President, Land Bank of the Philippines for further
review and evaluation.[10]
On December 12, 1989, Secretary of Agrarian Reform Miriam Defensor
Santiago sent two (2) notices of acquisition[11]to petitioner, stating that petitioners
landholdings covered by TCT Nos. 81949 and 84891, containing an area of 188.2858
and 58.5800 hectares, valued at P4,417,735.65 and P1,220,229.93, respectively, had
been placed under the Comprehensive Agrarian Reform Program.
On February 6, 1990, petitioner SRRDC in two letters [12] separately addressed
to Secretary Florencio B. Abad and the Director, Bureau of Land Acquisition and
Distribution, sent its formal protest, protesting not only the amount of compensation
offered by DAR for the property but also the two (2) notices of acquisition.
On March 17, 1990, Secretary Abad referred the case to the DARAB for
summary proceedings to determine just compensation under R. A. No. 6657, Section16.
On March 23, 1990, the LBP returned the two (2) claim folders previously
referred for review and evaluation to the Director of BLAD mentioning its inability
to value the SRRDC landholding due to some deficiencies.
On March 28, 1990, Executive Director Emmanuel S. Galvez wrote Land Bank
President Deogracias Vistan to forward the two (2) claim folders involving the
property of SRRDC to the DARAB for it to conduct summary proceedings to
determine the just compensation for the land.
On April 6, 1990, petitioner sent a letter to the Land Bank of the Philippines
stating that its property under the aforesaid land titles were exempt from CARP
coverage because they had been classified as watershed area and were the subject of
a pending petition for land conversion.
On May 10, 1990, Director Narciso Villapando of BLAD turned over the two
(2) claim folders (CACFs) to the Executive Director of the DAR Adjudication
Board for proper administrative valuation. Acting on the CACFs, on September 10,
1990, the Board promulgated a resolution asking the office of the Secretary of
Agrarian Reform (DAR) to first resolve two (2) issues before it proceeds with the
summary land valuation proceedings.[13]
The issues that need to be threshed out were as follows: (1) whether the subject
parcels of land fall within the coverage of the Compulsory Acquisition Program of
the CARP; and (2) whether the petition for land conversion of the parcels of land
may be granted.
On December 7, 1990, the Office of the Secretary, DAR, through the
Undersecretary for Operations (Assistant Secretary for Luzon Operations) and the
Regional Director of Region IV, submitted a report answering the two issues
raised. According to them, firstly, by virtue of the issuance of the notice of coverage
on August 11, 1989, and notice of acquisition on December 12, 1989, the property is
covered under compulsory acquisition. Secondly, Administrative Order No. 1,
Series of 1990, Section IV D also supports the DAR position on the coverage of the
said property. During the consideration of the case by the Board, there was no
pending petition for land conversion specifically concerning the parcels of land in
question.
On February 19, 1991, the Board sent a notice of hearing to all the parties
interested, setting the hearing for the administrative valuation of the subject parcels
of land on March 6, 1991. However, on February 22, 1991, Atty. Ma. Elena P.
Hernandez-Cueva, counsel for SRRDC, wrote the Board requesting for its assistance
in the reconstruction of the records of the case because the records could not be
found as her co-counsel, Atty. Ricardo Blancaflor, who originally handled the case
for SRRDC and had possession of all the records of the case was on indefinite leave
and could not be contacted. The Board granted counsels request and moved the
hearing to April 4, 1991.
On March 18, 1991, SRRDC submitted a petition to the Board for the latter to
resolve SRRDCs petition for exemption from CARP coverage before any
administrative valuation of their landholding could be had by the Board.
On April 4, 1991, the initial DARAB hearing of the case was held and
subsequently, different dates of hearing were set without objection from counsel of
SRRDC. During the April 15, 1991 hearing, the subdivision plan of subject property
at Casile, Cabuyao, Laguna was submitted and marked as Exhibit 5 for
SRRDC. At the hearing on April 23, 1991, the Land Bank asked for a period of one
month to value the land in dispute.
At the hearing on April 23, 1991, certification from Deputy ZoningAdministrator Generoso B. Opina was presented. The certification issued on
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September 8, 1989, stated that the parcels of land subject of the case were classified
as industrial Park per Sanguniang Bayan Resolution No. 45-89 dated March 29,
1989.[14]
To avert any opportunity that the DARAB might distribute the lands to the
farmer beneficiaries, on April 30, 1991, petitioner filed a petition [15]with DARAB to
disqualify private respondents as beneficiaries. However, DARAB refused to
address the issue of beneficiaries.
In the meantime, on January 20, 1992, the Regional Trial Court, Laguna,Branch 24, rendered a decision,[16]finding that private respondents illegally entered
the SRRDC property, and ordered them evicted.
On July 11, 1991, DAR Secretary Benjamin T. Leong issued a memorandum
directing the Land Bank of the Philippines to open a trust account in favor of
SRRDC, for P5,637,965.55, as valuation for the SRRDC property.
On December 19, 1991, DARAB promulgated a decision, the decretal portion
of which reads:
WHEREFORE, based on the foregoing premises, the Board hereby orders:
1. The dismissal for lack of merit of the protest against the compulsory coverage of
the landholdings of Sta. Rosa Realty Development Corporation (Transfer Certificates
of Title Nos. 81949 and 84891 with an area of 254.766 hectares) in Barangay Casile,
Municipality of Cabuyao, Province of Laguna under the Comprehensive Agrarian
Reform Program is hereby affirmed;
2. The Land Bank of the Philippines (LBP) to pay Sta. Rosa Realty Development
Corporation the amount of Seven Million Eight Hundred Forty-One Thousand, Nine
Hundred Ninety Seven Pesos and Sixty-Four centavos (P7,841,997.64) for its
landholdings covered by the two (2) Transfer Certificates of Title mentioned
above. Should there be a rejection of the payment tendered, to open, if none has yet
been made, a trust account for said amount in the name of Sta. Rosa RealtyDevelopment Corporation;
3. The Register of Deeds of the Province of Laguna to cancel with dispatch Transfer
certificate of Title Nos. 84891 and 81949 and new one be issued in the name of the
Republic of the Philippines, free from liens and encumbrances;
4 The Department of Environment and Natural Resources either through its
Provincial Office in Laguna or the Regional Office, Region IV, to conduct a final
segregation survey on the lands covered by Transfer certificate of Title Nos. 84891
and 81949 so the same can be transferred by the Register of Deeds to the name of the
Republic of the Philippines;
5. The Regional Office of the Department of Agrarian Reform through its
Municipal and Provincial Agrarian Reform Office to take immediate possession on
the said landholding after Title shall have been transferred to the name of the
Republic of the Philippines, and distribute the same to the immediate issuance of
Emancipation Patents to the farmer-beneficiaries as determined by the Municipal
Agrarian Reform Office of Cabuyao, Laguna.[17]
On January 20, 1992, the Regional Trial Court, Laguna, Branch 24, rendered a
decision in Civil Case No. B-2333[18]
ruling that respondents were builders in badfaith.
On February 6, 1992, petitioner filed with the Court of Appeals a petition for
review of the DARAB decision.[19] On November 5, 1993, the Court of Appeals
promulgated a decision affirming the decision of DARAB. The decretal portion of
the Court of Appeals decision reads:
WHEREFORE, premises considered, the DARAB decision dated September 19,
1991 is AFFIRMED, without prejudice to petitioner Sta. Rosa Realty Development
Corporation ventilating its case with the Special Agrarian Court on the issue of just
compensation.[20]
Hence, this petition.[21]
On December 15, 1993, the Court issued a Resolution which reads:
G. R. Nos. 112526 (Sta. Rosa Realty Development Corporation vs. Court of
Appeals, et. al.) Considering the compliance, dated December 13, 1993, filed by
counsel for petitioner, with the resolution of December 8, 1993 which required
petitioner to post a cash bond or surety bond in the amount of P1,500,000.00 Pesos
before issuing a temporary restraining order prayed for, manifesting that it has posted
a CASH BOND in the same amount with the Cashier of the Court as
evidenced by the attached official receipt no. 315519, the Court resolved to ISSUE
the Temporary Retraining Order prayed for.
The Court therefore, resolved to restrain: (a) the Department of Agrarian Reform
Adjudication Board from enforcing its decision dated December 19, 1991 in
DARAB Case No. JC-R-IV-LAG-0001, which was affirmed by the Court of Appeals
in a Decision dated November 5, 1993, and which ordered, among others, the
Regional Office of the Department of Agrarian Reform through its Municipal and
Provincial Reform Office to take immediate possession of the landholding in dispute
after title shall have been transferred to the name of the Republic of the Philippines
and to distribute the same through the immediate issuance of Emancipation Patents
to the farmer-beneficiaries as determined by the Municipal Agrarian Officer of
Cabuyao, Laguna, (b) The Department of Agrarian Reform and/or the Department of
Agrarian Reform Adjudication Board, and all persons acting for and in their behalfand under their authority from entering the properties involved in this case and from
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introducing permanent infrastructures thereon; and (c) the private respondents from
further clearing the said properties of their green cover by the cutting or burning of
trees and other vegetation, effective today until further orders from this Court. [22]
The main issue raised is whether the property in question is covered by CARP
despite the fact that the entire property formed part of a watershed area prior to the
enactment of R. A. No. 6657.
Under Republic Act No. 6657, there are two modes of acquisition of private
land: compulsory and voluntary. In the case at bar, the Department of Agrarian
Reform sought the compulsory acquisition of subject property under R. A. No. 6657,
Section 16, to wit:
Sec. 16. Procedure for Acquisition of Private Lands. For purposes of acquisition
of private lands, the following procedures shall be followed:
a.) After having identified the land, the landowners and the beneficiaries,
the DAR shall send its notice to acquire the land to the owners thereof,
by personal delivery or registered mail, and post the same in a
conspicuous place in the municipal building and barangay hall of the
place where the property is located. Said notice shall contain the offerof the DAR to pay corresponding value in accordance with the
valuation set forth in Sections 17, 18, and other pertinent provisions
hereof.
b.) Within thirty (30) days from the date of the receipt of written notice by
personal delivery or registered mail, the landowner, his administrator
or representative shall inform the DAR of his acceptance or rejection
of the offer.
c.) If the landowner accepts the offer of the DAR, the LBP shall pay the
landowner the purchase price of the land within thirty (30) days after
he executes and delivers a deed of transfer in favor of the government
and other muniments of title.
d.) In case of rejection or failure to reply, the DAR shall conduct summary
administrative proceedings to determine the compensation for the land
requiring the landowner, the LBP and other interested parties to
submit fifteen (15) days from receipt of the notice. After the
expiration of the above period, the matter is deemed submitted for
decision. The DAR shall decide the case within thirty (30) days after
it is submitted for decision.
e.) Upon receipt by the landowner of the corresponding payment, or, in
case of rejection or no response from the landowner, upon the deposit
with an accessible bank designated by the DAR of the compensation
in cash or in LBP bonds in accordance with this act, the DAR shallmake immediate possession of the land and shall request the proper
Register of Deeds to issue Transfer Certificate of Titles (TCT) in the
name of the Republic of the Philippines. The DAR shall thereafter
proceed with the redistribution of the land to the qualified
beneficiaries.
f.) Any party who disagrees with the decision may bring the matter to the
court[23]of proper jurisdiction for final determination of just
compensation.
In compulsory acquisition of private lands, the landholding, the landowners andfarmer beneficiaries must first be identified. After identification, the DAR shall send
a notice of acquisition to the landowner, by personal delivery or registered mail, and
post it in a conspicuous place in the municipal building and barangay hall of the
place where the property is located.
Within thirty (30) days from receipt of the notice of acquisition, the landowner,
his administrator or representative shall inform the DAR of his acceptance or
rejection of the offer.
If the landowner accepts, he executes and delivers a deed of transfer in favor of
the government and surrenders the certificate of title. Within thirty (30) days from
the execution of the deed of transfer, the Land Bank of the Philippines (LBP) pays
the owner the purchase price. If the landowner accepts, he executes and delivers adeed of transfer in favor of the government and surrenders the certificate of
title. Within thirty days from the execution of the deed of transfer, the Land Bank of
the Philippines (LBP) pays the owner the purchase price. If the landowner rejects
the DARs offer or fails to make a reply, the DAR conducts summary administrative
proceedings to determine just compensation for the land. The landowner, the LBP
representative and other interested parties may submit evidence on just compensation
within fifteen days from notice. Within thirty days from submission, the DAR shall
decide the case and inform the owner of its decision and the amount of just
compensation.
Upon receipt by the owner of the corresponding payment, or, in case of
rejection or lack of response from the latter, the DAR shall deposit the compensationin cash or in LBP bonds with an accessible bank. The DAR shall immediately take
possession of the land and cause the issuance of a transfer certificate of title in the
name of the Republic of the Philippines. The land shall then be redistributed to the
farmer beneficiaries. Any party may question the decision of the DAR in the special
agrarian courts (provisionally the Supreme Court designated branches of the regional
trial court as special agrarian courts) for final determination of just compensation.
The DAR has made compulsory acquisition the priority mode of land
acquisition to hasten the implementation of the Comprehensive Agrarian Reform
Program (CARP). Under Sec. 16 of the CARL, the first step in compulsory
acquisition is the identification of the land, the landowners and the farmer
beneficiaries. However, the law is silent on how the identification process shall be
made. To fill this gap, on July 26, 1989, the DAR issued Administrative Order No.
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12, series of 1989, which set the operating procedure in the identification of such
lands. The procedure is as follows:
A. The Municipal Agrarian Reform Officer (MARO), with the assistance of the
pertinent Barangay Agrarian Reform Committee (BARC), shall:
1. Update the masterlist of all agricultural lands covered under the CARP
in his area of responsibility; the masterlist should include such
information as required under the attached CARP masterlist formwhich shall include the name of the landowner, landholding area,
TCT/OCT number, and tax declaration number.
2. Prepare the Compulsory Acquisition Case Folder (CACF) for each title
(OCT/TCT) or landholding covered under Phase I and II of the CARP
except those for which the landowners have already filed applications
to avail of other modes of land acquisition. A case folder shall contain
the following duly accomplished forms:
a) CARP CA Form 1MARO investigation report
b) CARP CA Form No 2 Summary investigation report findings andevaluation
c) CARP CA Form 3Applicants Information sheet
d) CARP CA Form 4 Beneficiaries undertaking
e) CARP CA Form 5 Transmittal report to the PARO
The MARO/BARC shall certify that all information contained in the above-
mentioned forms have been examined and verified by him and that the same are true
and correct.
3. Send notice of coverage and a letter of invitation to a
conference/meeting to the landowner covered by the Compulsory Case
Acquisition Folder. Invitations to the said conference meeting shall
also be sent to the prospective farmer-beneficiaries, the BARC
representatives, the Land Bank of the Philippines (LBP)
representative, and the other interested parties to discuss the inputs to
the valuation of the property.
He shall discuss the MARO/BARC investigation report and solicit the views,
objection, agreements or suggestions of the participants thereon. The landowner
shall also ask to indicate his retention area. The minutes of the meeting shall be
signed by all participants in the conference and shall form an integral part of the
CACF.
4. Submit all completed case folders to the Provincial Agrarian Reform
Officer (PARO).
B. The PARO shall:
1. Ensure the individual case folders are forwarded to him by hisMAROs.
2. Immediately upon receipt of a case folder, compute the valuation of the
land in accordance with A.O. No. 6, series of 1988. The valuation
worksheet and the related CACF valuation forms shall be duly
certified correct by the PARO and all the personnel who participated
in the accomplishment of these forms.
3. In all cases, the PARO may validate the report of the MARO through
ocular inspection and verification of the property. This ocular
inspection and verification shall be mandatory when the computed
value exceeds P500,000 per estate.
4. Upon determination of the valuation, forward the case folder, together
with the duly accomplished valuation forms and his recommendations,
to the Central Office.
The LBP representative and the MARO concerned shall be furnished a copy each of
his report.
C. DAR Central Office, specifically through the Bureau of Land Acquisition and
Distribution (BLAD), shall:
1. Within three days from receipt of the case folder from the PARO,review, evaluate and determine the final land valuation of the property
covered by the case folder. A summary review and evaluation report
shall be prepared and duly certified by the BLAD Director and the
personnel directly participating in the review and final valuation.
2. Prepare, for the signature of the Secretary or her duly authorized
representative, a notice of acquisition (CARP Form 8) for the subject
property. Serve the notice to the landowner personally or through
registered mail within three days from its approval. The notice shall
include among others, the area subject of compulsory acquisition, and
the amount of just compensation offered by DAR.
3. Should the landowner accept the DARs offered value, the BLAD shallprepare and submit to the Secretary for approval the order of
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acquisition. However, in case of rejection or non-reply, the DAR
Adjudication Board (DARAB) shall conduct a summary
administrative hearing to determine just compensation, in accordance
with the procedures provided under Administrative Order No. 13,
series of 1989. Immediately upon receipt of the DARABs decision
on just compensation, the BLAD shall prepare and submit to the
Secretary for approval the required order of acquisition.
4. Upon the landowners receipt of payment, in case of acceptance, or
upon deposit of payment in the designated bank, in case of rejection ornon-response, the Secretary shall immediately direct the pertinent
Register of Deeds to issue the corresponding Transfer Certificate of
Title (TCT) in the name of the Republic of the Philippines. Once the
property is transferred, the DAR, through the PARO, shall take
possession of the land for redistribution to qualified beneficiaries.
Administrative Order No. 12, Series of 1989 requires that the Municipal
Agrarian Reform Officer (MARO) keep an updated master list of all agricultural
lands under the CARP in his area of responsibility containing all the required
information. The MARO prepares a Compulsory Acquisition Case Folder (CACF)
for each title covered by CARP. The MARO then sends the landowner a Notice of
Coverage and a letter of invitation to a conference/ meeting over the landcovered by the CACF. He also sends invitations to the prospective farmer-
beneficiaries, the representatives of the Barangay Agrarian Reform Committee
(BARC), the Land Bank of the Philippines (LBP) and other interested parties to
discuss the inputs to the valuation of the property and solicit views, suggestions,
objections or agreements of the parties. At the meeting, the landowner is asked to
indicate his retention area.
The MARO shall make a report of the case to the Provincial Agrarian Reform
Officer (PARO) who shall complete the valuation of the land. Ocular inspection and
verification of the property by the PARO shall be mandatory when the computed
value of the estate exceeds P500,000.00. Upon determination of the valuation, the
PARO shall forward all papers together with his recommendation to the Central
Office of the DAR. The DAR Central Office, specifically, the Bureau of Land
Acquisition and Distribution (BLAD) shall prepare, on the signature of the Secretary
or his duly authorized representative, a notice of acquisition of the subject
property. From this point, the provisions of R. A. No. 6657, Section 16 shall apply.
For a valid implementation of the CARP Program, two notices are required: (1)
the notice of coverage and letter of invitation to a preliminary conference sent to the
landowner, the representative of the BARC, LBP, farmer beneficiaries and other
interested parties pursuant to DAR A. O. No. 12, series of 1989; and (2) the notice of
acquisition sent to the landowner under Section 16 of the CARL.
The importance of the first notice, that is, the notice of coverage and the letter
of invitation to a conference, and its actual conduct cannot be understated. They aresteps designed to comply with the requirements of administrative due process. The
implementation of the CARL is an exercise of the States police power and the
power of eminent domain. To the extent that the CARL prescribes retention limits to
the landowners, there is an exercise of police power for the regulation of private
property in accordance with the Constitution. But where, to carry out such
regulation, the owners are deprived of lands they own in excess of the maximum area
allowed, there is also a taking under the power of eminent domain. The taking
contemplated is not mere limitation of the use of the land. What is required is the
surrender of the title to and physical possession of the excess and all beneficial rights
accruing to the owner in favor of the farmer beneficiary.In the case at bar, DAR has executed the taking of the property in
question. However, payment of just compensation was not in accordance with the
procedural requirement. The law required payment in cash or LBP bonds, not by
trust account as was done by DAR.
In Association of Small Landowners in the Philippines v. Secretary of Agrarian
Reform, we held that The CARP Law, for its part, conditions the transfer of
possession and ownership of the land to the government on receipt of the landowner
of the corresponding payment or the deposit by the DAR of the compensation in cash
or LBP bonds with an accessible bank. Until then, title also remains with the
landowner. No outright change of ownership is contemplated either.[24]
Consequently, petitioner questioned before the Court of Appeals DARABs
decision ordering the compulsory acquisition of petitioners property.[25]Here,
petitioner pressed the question of whether the property was a watershed, not covered
by CARP.
Article 67 of the Water Code of the Philippines (P. D. No. 1067) provides:
Art. 67. Any watershed or any area of land adjacent to any surface water or
overlying any ground water may be declared by the Department of Natural resources
as a protected area. Rules and Regulations may be promulgated by such Department
to prohibit or control such activities by the owners or occupants thereof within the
protected area which may damage or cause the deterioration of the surface water or
ground water or interfere with the investigation, use, control, protection,management or administration of such waters.
Watersheds may be defined as an area drained by a river and its tributaries and
enclosed by a boundary or divide which separates it from adjacent watersheds.
Watersheds generally are outside the commerce of man, so why was the Casile
property titled in the name of SRRDC? The answer is simple. At the time of the
titling, the Department of Agriculture and Natural Resources had not declared the
property as watershed area. The parcels of land in Barangay Casile were declared as
PARK by a Zoning Ordinance adopted by the municipality of Cabuyao in 1979, as
certified by the Housing and Land Use Regulatory Board. On January 5, 1994, the
Sangguniang Bayan of Cabuyao, Laguna issued a Resolution [26]voiding the zoning
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classification of the land at Barangay Casile as Park and declaring that the land is
now classified as agricultural land.
The authority of the municipality of Cabuyao, Laguna to issue zoning
classification is an exercise of its police power, not the power of eminent domain. A
zoning ordinance is defined as a local city or municipal legislation which logically
arranges, prescribes, defines and apportions a given political subdivision into
specific land uses as present and future projection of needs.[27]
In Natalia Realty, Inc. v. Department of Agrarian Reform[28]
we held that landsclassified as non-agricultural prior to the effectivity of the CARL may not be
compulsorily acquired for distribution to farmer beneficiaries.
However, more than the classification of the subject land as PARK is the fact
that subsequent studies and survey showed that the parcels of land in question form a
vital part of a watershed area. [29]
Now, petitioner has offered to prove that the land in dispute is a watershed or
part of the protected area for watershed purposes. Ecological balances and
environmental disasters in our day and age seem to be interconnected. Property
developers and tillers of the land must be aware of this deadly combination. In the
case at bar, DAR included the disputed parcels of land for compulsory acquisition
simply because the land was allegedly devoted to agriculture and was titled toSRRDC, hence, private and alienable land that may be subject to CARP.
However, the scenario has changed, after an in-depth study, survey and
reassessment. We cannot ignore the fact that the disputed parcels of land form a
vital part of an area that need to be protected for watershed purposes. In a report of
the Ecosystems Research and Development Bureau (ERDB), a research arm of the
DENR, regarding the environmental assessment of the Casile and Kabanga-an river
watersheds, they concluded that:
The Casile barangay covered by CLOA in question is situated in the heartland of
both watersheds. Considering the barangays proximity to the Matangtubig
waterworks, the activities of the farmers which are in conflict with proper soil andwater conservation practices jeopardize and endanger the vital
waterworks. Degradation of the land would have double edge detrimental
effects. On the Casile side this would mean direct siltation of the Mangumit river
which drains to the water impounding reservoir below. On the Kabanga-an side, this
would mean destruction of forest covers which acts as recharged areas of the
Matang Tubig springs. Considering that the people have little if no direct interest in
the protection of the Matang Tubig structures they couldnt care less even if it would
be destroyed.
The Casile and Kabanga-an watersheds can be considered a most vital life support
system to thousands of inhabitants directly and indirectly affected by it. From these
watersheds come the natural God-given precious resource water. x x x x x
Clearing and tilling of the lands are totally inconsistent with sound watershed
management. More so, the introduction of earth disturbing activities like road
building and erection of permanent infrastructures. Unless the pernicious
agricultural activities of the Casile farmers are immediately stopped, it would not be
long before these watersheds would cease to be of value. The impact of watershed
degredation threatens the livelihood of thousands of people dependent upon
it. Toward this, we hope that an acceptable comprehensive watershed development
policy and program be immediately formulated and implemented before the
irreversible damage finally happens.
Hence, the following are recommended:
7.2 The Casile farmers should be relocated and given financial assistance.
7.3 Declaration of the two watersheds as critical and in need of immediate
rehabilitation.
7.4 A comprehensive and detailed watershed management plan and program be
formulated and implemented by the Canlubang Estate in coordination with pertinent
government agencies.[30]
The ERDB report was prepared by a composite team headed by Dr. Emilio
Rosario, the ERDB Director, who holds a doctorate degree in water resources from
U.P. Los Banos in 1987; Dr. Medel Limsuan, who obtained his doctorate degree in
watershed management from Colorado University (US) in 1989; and Dr. Antonio M.
Dano, who obtained his doctorate degree in Soil and Water management
Conservation from U.P. Los Banos in 1993.
Also, DENR Secretary Angel Alcala submitted a Memorandum for the
President dated September 7, 1993 (Subject: PFVR HWI Ref.: 933103 Presidential
Instructions on the Protection of Watersheds of the Canlubang Estates at Barrio
Casile, Cabuyao, Laguna) which reads:
It is the opinion of this office that the area in question must be maintained for
watershed purposes for ecological and environmental considerations, among
others. Although the 88 families who are the proposed CARP beneficiaries will be
affected, it is important that a larger view of the situation be taken as one should also
consider the adverse effect on thousands of residents downstream if the watershed
will not be protected and maintained for watershed purposes.
The foregoing considered, it is recommended that if possible, an alternate area be
allocated for the affected farmers, and that the Canlubang Estates be mandated to
protect and maintain the area in question as a permanent watershed reserved.[31]
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The definition does not exactly depict the complexities of a watershed. The
most important product of a watershed is water which is one of the most important
human necessity. The protection of watersheds ensures an adequate supply of water
for future generations and the control of flashfloods that not only damage property
but cause loss of lives. Protection of watersheds is an intergenerational
responsibility that needs to be answered now.
Another factor that needs to be mentioned is the fact that during the DARAB
hearing, petitioner presented proof that the Casile property has slopes of 18% and
over, which exempted the land from the coverage of CARL. R. A. No. 6657, Section10, provides:
Section 10. Exemptions and Exclusions. Lands actually, directly and exclusively
used and found to be necessary for parks, wildlife, forest reserves, reforestration, fish
sanctuaries and breeding grounds, watersheds and mangroves, national defense,
school sites and campuses including experimental farm stations operated by public or
private schools for educational purposes, seeds and seedlings research and pilot
production centers, church sites and convents appurtenent thereto, communal burial
grounds and cemeteries, penal colonies and penal farms actually worked by the
inmates, government and private research and quarantine centers, and all lands
witheighteen percent (18%) slope and over, except those already developed shall
be exempt from coverage of this Act.
Hence, during the hearing at DARAB, there was proof showing that the
disputed parcels of land may be excluded from the compulsory acquisition coverage
of CARP because of its very high slopes.
To resolve the issue as to the true nature of the parcels of land involved in the
case at bar, the Court directs the DARAB to conduct a re-evaluation of the issue.
IN VIEW WHEREOF, the Court SETS ASIDE the decision of the Court of
Appeals in CA-G. R. SP No. 27234.
In lieu thereof, the Court REMANDS the case to the DARAB for re-evaluation
and determination of the nature of the parcels of land involved to resolve the issue of
its coverage by the Comprehensive Land Reform Program.
In the meantime, the effects of the CLOAs issued by the DAR to supposed
farmer beneficiaries shall continue to be stayed by the temporary restraining order
issued on December 15, 1993, which shall remain in effect until final decision on the
case.
No costs.
SO ORDERED.
Davide, Jr., C.J., (Chairman), and Ynares-Santiago, JJ., concur.
Puno, J., no part due to relationship.Kapunan, J., on official leave.
[1] In CA-G. R. SP No. 27234, promulgated on November 05, 1993, Martin,
Jr.,J.,ponente, Chua and Guerrero,JJ., concurring,Rollo, Vol. I, pp. 228-258.
[2] DARAB (Case No. JC-IV-LAG-0001) entitled Juan Amante, et. al. vs. Sta. Rosa
Realty Development Corporation, promulgated on December 19, 1991,Rollo, Vol. I,
pp. 133-136.
[3] Petition,Rollo, Vol. I, p.10.
[4] Petition, Regional Trial Court, Laguna, docketed as Civil Case No. B-2333, Rollo,
Vol. I, p. 11.
[5] Civil Cases Nos. 250, 258, 260, 262 and 266, p. 11.
[6] Petition, Annex A,Rollo, Vol. I, p. 55.
[7] Petition, Annex B, Rollo, Vol. I, p. 56-57.
[8] Original Record, Folder I, Letter of Felicito B. Buban, Department of Agriculture,
dated August 29, 1989.
[9]Ibid., Summary Investigation Report.
[10] Original Record, Folder II.
[11] Folder I, Notice of Acquisition.
[12]Ibid., Letters.
[13] Folder, JC-R-IV-LAG-0001-GO, Decision DARAB, pp. 23-25.
[14] Original Records, Folder of Exhibits III, Certification from the Office of the
Deputy Zoning Administrator.
[15] Vol. I, DARAB Folder, Manifestation and Motion.
[16] Petition, Annex B, Judgment, Judge Rodrigo V. Cosico, presiding, CARollo,
pp. 98-111. In Civil Case Nos. 250, 260, 258, 262, and 266.
[17] Folder JC-R-IV-LAG-0001-C.O., Decision, penned by Benjamin T. Leong
Chairman, concurred in by Renato B. Padilla, Lorenzo R. Reyes, Leopoldo M.
Serrano, Jr. and Josefina M. Sidiangco, members.
[18] Petition, Annex F, Vol. I, SCRollo, pp. 70-83.
[19] Docketed as CA-G. R. SP No. 27234.
[20] CARollo, Decision, Martin, Jr.,J.,ponente, Chua and Guerrero,JJ., concurring,
pp. 499-529.
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[21] Petition filed on November 24, 1993. G.R. No. 112526, Rollo, Vol. I, pp. 2-
52. On September 28, 1994, the Court gave due course to the petition. G.R. No.
112526,Rollo, Vol. II, pp. 780-781.
[22] Resolution,Rollo, pp. 296-300.
[23] R. A. No. 6657, Sec. 57.
[24] 175 SCRA 343, 391 (1989).
[25] In CA-G. R. SP No. 27234.[26] Comment of private respondents, Annex 1,Rollo, Vol. I, p. 331-332.
[27] P. D. No. 449, Sec. 4 (b).
[28] 225 SCRA 278, 283 [1993].
[29] Petition, Annex K (Annex B of), G.R. No. 112526, Rollo, Vol. I , p. 225;
Reply, Annex G, G.R. No. 112526,Rollo, Vol. I, pp. 455-521.
[30] Reply, Annex A,Rollo, Vol. II, pp. 583-584.
[31]Rollo, Vol. I, Memorandum, Secretary Alcala to FVR, p. 225.
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