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Petitioners Vs VS: Second Division
Petitioners Vs VS: Second Division
DECISION
CHICO-NAZARIO , J : p
The Case
This is a petition for review on certiorari under Rule 45 of the Rules of Court seeking
the reversal of the Decision 1 dated 24 November 2000, and the Resolution 2 dated 26
January 2001, rendered by the Court of Appeals in CA-G.R. SP No. 46025, which annulled
and set aside the decision 3 dated 14 May 1997, and resolution 4 dated 12 August 1997, of
the Department of Agrarian Reform Adjudication Board (DARAB) in DARAB Case No. 0776.
In its decision, the DARAB a rmed the ruling 5 dated 03 April 1992 of the DARAB Regional
Adjudication O ce 6 (Regional O ce) in favor of petitioners LUDO & LUYM Development
Corporation (LUDO) and CPC Development Corporation (CPC) in Reg. Case No. 12-39-000-
52-91.
The Facts
The present petition stemmed from a complaint 7 for "Opposition Against the
Application for Renewal of the Conversion Order/Claim for Payment of Disturbance
Compensation Plus Damages" led on 30 April 1991 by Vicente C. Barreto against herein
petitioners LUDO and CPC before the DARAB Regional Office in Iligan City, Lanao del Norte.
The landholding subject of the case at bar involves a thirty-six-hectare land, six
hectares of which were devoted for the planting of coconuts, while the remaining thirty
hectares had been planted with sugarcane. The land is covered by Transfer Certi cate of
Title No. 18822-25.
The facts are beyond dispute.
In 1938, Vicente C. Barreto, as tenant of landowner Antonio Bartolome, worked on
and cultivated two hectares of land devoted to sugarcane plantation.
In 1956, Antonio Bartolome sold the entire estate to LUDO with the latter absorbing
all the farmworkers of the former. Vicente C. Barreto was designated as a co-overseer
with Bartolome on the six-hectare coco land portion of the estate, pending the
development of the entire estate into a residential-commercial complex. It was agreed that
the new owner, herein petitioner LUDO, Antonio Bartolome and complainant Vicente C.
Barreto will share in the harvests.
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In 1972, when sugarcane production became unpro table, herein petitioner LUDO
discontinued the planting of the same and shifted to cassava production. Soil analysis
revealed later, however, that the land was not suitable for cassava production and so the
same was also discontinued.
In 1975, City Ordinance No. 1313, otherwise known as the Zoning Regulation of
Iligan City, was passed. Pursuant thereto, the subject landholding fell within the
Commercial-Residential Zone of the city.
Sometime in 1978, having decided to convert the entire estate into a residential-
commercial complex, herein petitioner LUDO instructed Antonio Bartolome, who, in turn,
instructed complainant Vicente C. Barreto, to submit a list of its legitimate farmworkers so
that they may be given some sort of disturbance compensation. Accordingly, such list was
submitted. Some farmworkers accepted "disturbance" compensation, while the others
who refused to accept the same instituted Court of Agrarian Reform (CAR) Cases No. 48 8
and No. 59. 9 In the latter case, Vicente C. Barreto was impleaded as a party defendant in
his capacity as a co-overseer of the entire estate. Ultimately, said cases were settled by
compromise agreements. cAHIaE
(b) The forcible entry or illegal detainer by persons who are not
quali ed bene ciaries under this Act to avail themselves of the rights and
benefits of the Agrarian Reform Program.
(c) The conversion by any landowner of his agricultural land into any
non-agricultural use with intent to avoid the application of this Act to his
landholdings and to dispossess his tenant farmers of the land tilled by them.
(d) The willful prevention or obstruction by any person, association or
entity of the implementation of the CARP.
In a letter 1 2 dated 29 July 1991, CPC formally informed Vicente C. Barreto of the
termination of his employment as a co-overseer of the subject landholding due to the fact
that the management has "already commenced selling our subdivision lots and therefore,
we have to start cutting coconut trees and other plants, especially within the subdivision
area. . . ."
After hearing the parties, the DARAB Regional O ce (Region XII) in Iligan City, Lanao
del Norte, rendered a decision, dated 03 April 1992, in favor of respondents, herein
petitioners, LUDO and CPC. The fallo of the said decision reads:
WHEREFORE, premises considered, judgment is hereby rendered in favor of
the respondents and against the complainant. Complainant's opposition against
the application for renewal of the conversion order, his claims for payment of
disturbance compensation and damages are hereby DISMISSED for lack of merit.
Complainant's relocation or payment of disturbance compensation is addressed
to the humanitarian disposition of the respondents, as the complainant has no
legal right of possession much less ownership over the premises he is residing.
NO COSTS. 1 3
In arriving at its decision, the DARAB Regional O ce found that there was no
tenancy relationship existing between respondent LUDO and complainant Vicente C.
Barreto, thus, no disturbance compensation was due the latter for having been
dispossessed of the six-hectare landholding he had been tilling. The DARAB Regional
O ce gave ample credence to the a davit of Antonio Bartolome, complainant's co-
overseer and former owner of the thirty-six-hectare landholding. In said a davit,
Bartolome stated that "the complainant was one of his farmworkers who was then
cultivating a two-hectare portion of his land which was devoted to sugarcane production
at the time of sale in 1956. Thereafter, they were jointly designated as overseers of the
entire LUDODEV estate and subsequently on the six-hectare portion of the estate which
was planted with coconuts."
Likewise, it stated that even granting for the sake of argument that complainant
Vicente C. Barreto was indeed a tenant of the landholding, when he did not join as party
plaintiff in either of the CAR cases aforementioned, and instead opted to be designated as
a co-overseer with Antonio Bartolome, he waived the alleged tenant status, "[h]aving thus
waived his tenancy in favor of overseeing, complainant is precluded by estoppel and
laches to claim only at this time for disturbance compensation. He simply cannot be
allowed to enjoy the benefits flowing from both worlds. . ."
Furthermore, the DARAB Regional O ce also made the pronouncement that as early
as 1975, the subject landholding ceased to be agricultural in nature when Conrado F.
Estrella, Secretary of the DAR, issued a conversion permit 1 4 allowing said conversion from
agricultural to residential/commercial pursuant to the zoning regulation passed by the
legislative authority of Iligan City. The land having ceased to be agricultural in nature as far
back as 1975, there was no current legitimate tenant to speak of.
With respect to the claim of complainant Vicente C. Barreto for payment of
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disturbance compensation, the DARAB Regional O ce declared that in view of the
preceding paragraph, such had already prescribed by virtue of Section 38 of Rep. Act No.
3844: 1 5
SEC. 38. Statute of Limitations. — An action to enforce any cause of
action under this Code shall be barred if not commenced within three years after
such cause of action accrued.
It explained that the statute of limitation should commence to run from the time of
notice to complainant of the intended conversion by the landowner, speci cally, sometime
in 1974 when petitioner LUDO instructed Antonio Bartolome and complainant Vicente C.
Barreto to submit a list of its legitimate farmworkers entitled to disturbance
compensation. Thus, by 1978, complainant Vicente C. Barreto's cause of action had
already prescribed.
Respondents-appellees LUDO and CPC led a motion for reconsideration but said
motion was similarly denied for lack of merit by the Court of Appeals in a resolution dated
02 April 2003.
From the foregoing definition, the essential requisites 2 0 of tenancy relationship are:
1. the parties are the landholder and the tenant;
2. the subject is agricultural land;
3. there is consent;
4. the purpose is agricultural production; and
5. there is consideration.
All of the above requisites are indispensable in order to create or establish tenancy
relationship between the parties. Inexorably, the absence of at least one requisite does not
make the alleged tenant a de facto one for the simple reason that unless an individual has
established one's status as a de jure tenant, he is not entitled to security of tenure
guaranteed by agricultural tenancy laws. Conversely, one cannot be ejected from the
agricultural landholding on grounds not provided by law. This is unequivocally stated in
Section 7 of Rep. Act No. 3844, which provides:
SEC. 7. Tenure of Agricultural Leasehold Relation. — The agricultural
leasehold relation once established shall confer upon the agricultural lessee the
right to continue working on the landholding until such leasehold relation is
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extinguished. The agricultural lessee shall be entitled to security of tenure on his
landholding and cannot be ejected therefrom unless authorized by the Court for
causes herein provided.
Fundamentally, the Boards a quo found that the rst essential element — is that the
parties are the landowner and tenant — is very much absent in the case at bar. In reversing
the DARAB's decision, however, the Court of Appeals noted that the DARAB overly relied on
the fact that deceased Vicente C. Barreto did not join as party plaintiff the other tenants of
petitioner LUDO in CAR Cases No. 48 and No. 59 and instead was impleaded as party
defendant in CAR Case No. 59 along with petitioner LUDO. It held that:
The fact that Barreto did not institute a case or did not join the other
tenants in CAR Case Nos. 48 and 59 does not imply that he was not a tenant. He
precisely led his opposition before the Board to protect his rights as tenant on
the subject six (6) hectare coconut land. His action or rather inaction in the past
does not bar him of the petitioners from seeking whatever relief they may be
entitled to under the law. 2 1
In their memorandum submitted to the Court, petitioners LUDO and CPC, while
admitting that Vicente Barreto was a former worker-cultivator/tenant of the subject parcel
of land, insist that he was such only during the time when the landholding was still owned
by Antonio Bartolome. Thus, they basically deny now the existence of a landlord-tenant
relationship between the parties of the instant case. It had the same view as the Boards a
quo, that the rst essential element indicating the existence of a landlord-tenant
relationship, "that the parties are the landowner and the tenant or agricultural lessee," 2 2 is
essentially lacking. They adamantly maintain that after its sale to petitioner corporation,
however, Vicente Barreto opted to waive his right to claim disturbance compensation to
become an overseer of the said parcel of land, together with its former owner, Antonio
Bartolome. There being no landlord-tenant relationship between Vicente Barreto and
petitioner corporation, it asserts that, consequently, respondent legal heirs of Vicente C.
Barreto are not entitled to disturbance compensation.
We disagree.
Even as we uphold time and again the existence and validity of implied agricultural
tenancy agreements, the inverse does not essentially follow. The intention of a tenant to
surrender the landholding and concomitantly the statutory rights emanating from the
status of being a tenant, absent a positive act, cannot, and should not, be presumed, much
less determined by implication alone. Otherwise, the right of a tenant to security of tenure
becomes an illusory one. Tenancy relations cannot be bargained away except for the
strong reasons provided by law 2 3 which must be convincingly shown by evidence. TEDAHI
In the case at bar, it bears emphasizing that no one has denied the existence of the
tenancy status of deceased Vicente C. Barreto over the subject thirty-six-hectare
landholding with respect to its former owner, Antonio Bartolome. There being no waiver
executed by deceased tenant Barreto, no less than the law clari es that the existence of an
agricultural tenancy relationship is not terminated by mere changes of ownership, in cases
of sale or transfer of legal possession as in lease. 2 4 Section 10 of Rep. Act No. 3844
provides that:
SEC. 10. Agricultural Leasehold Relation Not Extinguished by
Expiration of Period, etc. — The agricultural leasehold relation under this Code
shall not be extinguished . . . by the sale, . . . of the landholding. In case the
agricultural lessor sells, . . . the purchaser . . . shall be subrogated to the rights and
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substituted to the obligations of the agricultural lessor.
For this reason, when petitioner LUDO became the owner of the subject landholding,
it became subrogated to the rights and obligations of its predecessor-in-interest, Antonio
Bartolome, his obligation under the law to the deceased tenant, Vicente C. Barreto,
continues and subsists until terminated as provided for by law.
Apropos the matter of deceased respondent Vicente C. Barreto's designation as an
overseer, it was held by the Boards a quo that the nature of an overseer goes against the
character of a tenant. In contrast, the Court of Appeals' estimation is that:
. . . [R]espondent's purpose in designating Barreto's (sic) as overseer was to
bring about the production of coconut. His designation would prove inutile
without him performing tasks necessary to take care, supervise and manage the
subject landholding. Logically, in the process of taking care, supervising and
managing the six-hectare coco land he cultivated the same. 2 5
A tenant has been de ned under Section 5(a) of Rep. Act No. 1199 as a person who,
himself, and with the aid available from within his immediate household, cultivates the land
belonging to or possessed by another, with the latter's consent for purposes of
production, sharing the produce with the landholder under the share tenancy system, or
paying to the landholder a price certain or ascertainable in produce or in money or both,
under the leasehold system. Applying the preceding to the case at bar, what became
apparent from the records is that though the late Vicente C. Barreto was designated as a
co-overseer of the subject landholding, he was also tilling the land and had a sharing
arrangement with petitioner LUDO and Antonio Bartolome. What is glittering, therefore, is
that the deceased also took on the added duty of being the overseer of the petitioners.
Nothing in law and in the facts of the case at bar excludes one from the other.
We cannot sustain the pronouncements of the Boards a quo to the effect that as
early as 1975, the subject landholding ceased to be agricultural in nature when Conrado F.
Estrella, Minister of Agrarian Reform issued a conversion permit 2 6 allowing said
conversion from agricultural to residential/commercial pursuant to the zoning regulation
passed by the legislative authority of Iligan City. The land having ceased to be agricultural
as far back as 1975, there can be no current legitimate tenant to speak of.
To begin with, the declaration by the Boards a quo to the effect that as early as
1975, the subject landholding ceased to be agricultural in nature when the DAR issued a
conversion permit is extremely misleading because the conversion permit was not issued
in 1975, but was actually signed by then Secretary Estrella only on 30 March 1978. What
was in reality referred to by the Boards was only City Ordinance No. 1313, otherwise
known as the Zoning Regulation of Iligan City. Pursuant thereto, the subject landholding of
the case was reclassi ed from agricultural to residential/commercial as such fell within
the Commercial-Residential Zone of the City of Iligan. In 1975, the subject landholding was
just merely reclassified and not converted.
Reclassi cation is very much different from conversion. The latter is the act of
changing the current use of a piece of agricultural land into some other use as approved by
the DAR. 2 7 Reclassi cation, in contrast, is the act of specifying how agricultural lands shall
be utilized for non-agricultural uses such as residential, industrial or commercial, as
embodied in the land use plan, subject to the requirements and procedure for land use
conversion. 2 8 Accordingly, a mere reclassi cation of agricultural land does not
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automatically allow a landowner to change its use and thus cause the ejectment of the
tenants. Parties can still continue with their tenurial relationship even after such
reclassi cation. He has to undergo the process of conversion before he is permitted to
use the agricultural land for other purposes. 2 9
Conspicuously, the Court of Appeals disparaged the aforecited nding when it
declared that:
. . . While it is a fact that as early as 1975, the area where the subject
landholding is located was declared by City Ordinance 1313 (Zoning Regulation
of Iligan City) to be within a commercial-residential zone. . ., it is indubitable that
the subject six-hectare land was actually devoted to agricultural activity.
Under R.A. No. 6657, land devoted to agricultural activity is agricultural
land (Sec. 3 [b]). The same law de nes agricultural activity as "the cultivation of
the soil, planting of crops, growing of fruit trees, raising of livestock, poultry or
sh, including the harvesting of such farm products, and other farm activities and
practices performed by a farmer in conjunction with such farming operations
done by persons whether natural or juridical" (Sec. 3 [c]).
Not only does the six-hectare landholding go through the foregoing
activities at one point in time or another; respondents further admitted that the
land was devoted and utilized for the production and harvest of coconut
products.
On the basis of the foregoing, it is indubitable that the subject landholding
is agricultural land. 3 0
To set the record straight, a conversion permit was indeed issued to the petitioners
by the DAR on 30 March 1978 allowing petitioner LUDO and accordingly co-petitioner CPC,
being the developer, to change the current use of the landholding subject of the case at
bar. Notwithstanding such, however, it is axiomatic, as plainly provided for by Section 36 of
Rep. Act No. 3844:
SEC. 36. Possession of Landholding; Exceptions. — Notwithstanding any
agreement as to the period or future surrender, of the land, an agricultural lessee shall
continue in the enjoyment and possession of his landholding except when his
dispossession has been authorized by the Court in a judgment that is nal and executory if
after due hearing it is shown that:
1. The landholding is declared by the department head upon
recommendation of the National Planning Commission to be suited for
residential, commercial, industrial or some other urban purposes: Provided, That
the agricultural lessee shall be entitled to disturbance compensation equivalent to
ve times the average of the gross harvests on his landholding during the last
five preceding calendar years;
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xxx xxx xxx
From the foregoing provision of law, it is clear that a tenant can be lawfully ejected
only if there is a court authorization in a judgment that is nal and executory and after a
hearing where the reclassi cation/conversion of the landholding was duly determined. If
the court authorizes the ejectment, the tenant who is dispossessed of his tenancy is
entitled to disturbance compensation. Put simply, court proceedings are indispensable
where the reclassi cation/conversion of a landholding is duly determined before
ejectment can be effected, which, in turn, paves the way for the payment of disturbance
compensation. ITAaHc
In the case at bar, though there appears to be no court proceeding which took
cognizance of the reclassi cation/application for conversion of the subject landholding
from agricultural to residential/commercial, the permit issued by the DAR on 30 March
1978 was never assailed and thus, attained nality. In the case of Bunye v. Aquino , 3 2 the
Court allowed the payment of disturbance compensation because there was an order of
conversion issued by the DAR of the landholding from agricultural to residential. The
decree was never questioned and thus became nal. Consequently, the tenants were
ejected from the land and were thus awarded disturbance compensation. From the
preceding discussion, it stands to reason that deceased Vicente C. Barreto, who used to
be a tenant of petitioner LUDO at the time of the conversion of the subject landholding, is
entitled to disturbance compensation for his dispossession.
Having declared that deceased Vicente C. Barreto, who had been ttingly
substituted by his legal heirs, is entitled to disturbance compensation under the law, the
next appropriate concern to be addressed is if such entitlement has already prescribed by
virtue of Section 38 of Rep. Act No. 3844:
SEC. 38. Statute of Limitations. — An action to enforce any cause of
action under this Code shall be barred if not commenced within three years after
such cause of action accrued.
The Boards a quo and the petitioners are of the view that prescription has already
set in, thus, the respondent heirs of Vicente C. Barreto cannot now claim for payment of
disturbance compensation. According to the decision of the DARAB, the deceased Vicente
C. Barreto's cause of action arose in 1974 when the latter received notice of the intended
conversion of the subject landholding by petitioner LUDO. When the deceased led the
instant complaint in 1991, thirteen years had already passed, hence, beyond the three-year
prescriptive period enunciated above.
On this matter, the Court agrees with the Court of Appeals, in its ruling, as contained
in its Resolution dated 26 January 2001, which denied the motion for reconsideration led
by petitioners LUDO and CPC anchored on the issue of prescription. It held that:
. . . It would appear however from the records that the respondents, through
its general manager terminated the services of the late petitioner Vicente Barreto
only on July 29, 1991. The instant complaint was led also in the same year
before the Office of the Agrarian Adjudicator in Iligan City. 3 3
In ne, the Court cannot, in law and conscience, condone the eviction of the
deceased Vicente C. Barreto, absent the payment of disturbance compensation due him
under the law. SEDaAH
WHEREFORE, in view of the foregoing, the instant petition is DENIED. The assailed
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Decision dated 24 November 2000, and the Resolution dated 26 January 2001, rendered
by the Court of Appeals in CA-G.R. SP No. 46025, are hereby AFFIRMED in toto. No costs.
SO ORDERED.
Puno, Austria-Martinez, Callejo, Sr. and Tinga, JJ., concur.
Footnotes
1. Penned by Court of Appeals Associate Justice Eliezer R. De Los Santos with Associate
Justices Eugenio S. Labitoria and Eloy R. Bello, Jr., concurring; Annex "A" of the Petition;
Rollo, pp. 19-29.
2. Annex "B" of the Petition; Rollo, pp. 30-31.
3. Composed of Sec. Ernesto D. Garilao as Chairman with Asst. Sec. Lorenzo R. Reyes as
Vice-Chairman, Undersecretaries Hector D. Soliman and Artemio A. Adasa, Jr., and Asst.
Secretaries Augusto P. Quijano and Sergio B. Serrano as members; Annex "D" of the
Petition; Rollo, pp. 39-45.
4. Annex "E" of the Petition; Rollo, pp. 46-47.
5. Penned by Atty. Mahadi M. Pimping, Regional Adjudicator; CA Rollo, pp. 149-155.
6. Region XII, Iligan City, Lanao del Norte.
7. DARAB Regional Office Records, pp. 427-443.
27. Section 2(k) of DAR Administrative Order No. 01-99, Revised Rules and Regulations on
the Conversion of Agricultural Lands to Non-Agricultural Uses.
28. Section 2(r) of DAR Administrative Order No. 01-99, Revised Rules and Regulations on
the Conversion of Agricultural Lands to Non-Agricultural Uses.
29. Alarcon, et al. v. Court of Appeals, G.R. No. 152085, 08 July 2003, 405 SCRA 440.
30. CA Rollo, pp. 105-106.
31. G.R. No. L-62626, 18 July 1984, 130 SCRA 482, 489-490.