Readings in Philippine History

Agrarian Reform Policies

FOR PPT

1. What is Agrarian Reform? Completed

● Redistribution of lands to farmers and regular farm workers who are landless
● Addresses the issues of land distribution
● Promotes social and economic status

2. DAR Historical Background Completed

● The Department of Agrarian Reform (DAR) was officially established on June 10,
1971, through Republic Act No. 6389.
● In 1978 the DAR was renamed, Ministry of Agrarian Reform.
● On July 26, 1987, the Department by virtue of Executive Order No. 129 expanded the
powers and operations of the Department.
● On September 27, 2004, President Gloria Macapagal-Arroyo, signed Executive Order
No. 364, and the Department of Agrarian Reform was renamed to Department of
Land Reform.
● On August 23, 2005, President Gloria Macapagal Arroyo signed Executive Order No.
456 and renamed the Department of Land Reform back to Department of Agrarian
Reform.
● At the administration of President Benigno Simeon “Noynoy” Aquino III, the DAR
which is the lead agency for CARP implementation is bent on sustaining the gains of
agrarian reform through its three major components– Land Tenure Improvement
(LTI), Program Beneficiaries Development (PBD) and Agrarian Justice Delivery
(AJD).

3. Agrarian Reform History Completed

➢ Pre-Spanish Period or Pre-Colonial Times (Before 16th Century)
“This land is ours, God gave this land to us”
Pre-Spanish Philippines Social Structure:
● Filipinos lived in villages or barangays.
● These communities were ruled by chiefs or datus, forming the nobility.
● There were different social classes: maharlikas (freemen), aliping mamamahay
(serfs), and aliping saguiguilid (slaves).
● The society had a communal approach to land and resource sharing.
Economic System:
● Money was not used; rice served as a medium of exchange.
● Land cultivation was typically done using the kaingin system (slash and burn) or
plowing and harrowing.
● Food production initially for family consumption, but later led to barter trade with
neighboring communities and foreign traders (Chinese, Arabs, Europeans).
 Readings in Philippine History

Barangay Organization:
● Barangays consisted of 30-100 families and were administered by different chiefs.
● The concept of "stewardship" emphasized the important relationship between people
and nature.
Land Transactions:
● The Maragtas Code records a land sale of Panay Island to ten Bornean datus in
exchange for a golden salakot and a long gold necklace.
● The Code of Luwaranwas was one of the oldest written laws of the Muslim society
but lacks recorded details on lease arrangements for cultivated lands.

➢ Spanish Period (1521 - 1896)

“United we stand, divided we fall”
Introduction of the "Pueblo" System:
● In 1521, the Spanish introduced the "pueblo" system, an agriculture system wherein
the native rural communities were organized into pueblo and each Christianized
native family was given four to five hectares of land to cultivate, eliminating a
landless class.
● These families are merely landholders and were not considered legitimate
landowners; the land was technically owned by the Spanish King.
19th Century Capitalist Transformation:
● In the early 19th century, the Philippines adopted capitalist policies, becoming an
exporter of raw materials and an importer of finished goods.
● The hacienda system emerged as a new form of land ownership, resulting in more
landless individuals.
Encomienda System Introduction:
● Spaniards introduced the concept of encomienda (Royal Land Grants) in the
Philippines.
● Encomienderos were tasked with defending their encomienda, maintaining peace, and
supporting missionaries. In return, they could collect tribute from the indios (native).
Abuse and Transformation of the System:
● The encomienda system degenerated into abuse of power by encomienderos.
● Tributes turned into land rents, leading to the transformation of native cultivators into
share tenants.
Origins of Agricultural Tenancy:
● The Laws of the Indies awarded land to religious orders, military, and encomienderos
for their service (also known as repartiamentos) in collecting tributes from native
tillers.
● Natives became laborers without land rights within these areas.
Abusive Practices:
● Encomienderos abused the system, extracting high tributes and introducing a
compras y vandalas system.
 Readings in Philippine History

● Tillers were compelled to sell or surrender their harvests at low prices to Spanish
authorities where encomienderos can resell it for a profit.
Land Registration Issues:
● In 1865, a law mandated landholders to register their landholdings, but few were
aware, leading to land claims by others.
● Many peasants were displaced from lands they had cultivated for centuries.
Introduction of the Ley Hipotecaria and The Maura Law:
● In 1893, the Ley Hipotecaria or the Mortgage Law aimed at systematic registration
of titles and deeds as well as ownership claims.
● In 1894, The Maura Law or Royal Decree of 1894 gave farmers and landholders
one year to register their agricultural lands to avoid state property declaration.
Peasant Revolution and Land Confiscation:
● The 1896 peasant and farmer revolution advocated for agrarian reform and social
justice.
● The government confiscated large landed estates, including friar lands, declaring them
government property (Malolos Constitution, 1896, Article XVII).

➢ Agrarian Uprisings (1745 - 1746)

Agrarian Unrest during Spanish Period:
● The Agrarian Revolt occurred from 1745 to 1746 in Batangas, Laguna, Cavite, and
Bulacan.
● Specifically, the revolt took place in the towns of Lian and Nasughu in Batangas.
● Troops from Manila were sent to Batangas to suppress the disturbance, resulting in a
bloody encounter.
● Uprising spread to neighboring provinces, including Bifian, Imus, Silang, Kawit,
Bacoor, San Mateo, Taguig, Parañaque, and Hagonoy.
Investigation and Royal Intervention:
● King Philip VI appointed Oidor (a judge of the Royal Audiencias and Chancillerías)
Pedro Calderon Enriquez to investigate charges against religious orders and validate
their land titles.
● Friars appealed to the Royal Audiencia of Manila, which upheld the decision.
● Further appeal to the Council of the Indies in Spain also confirmed the decision.
● The friars won the case, retaining disputed lands even after the end of the Spanish
regime.

➢ First Philippine Republic

“The yoke has finally broken”
1899 Establishment of First Philippine Republic:
● Gen. Emilio Aguinaldo declared the establishment of the First Philippine Republic.
Intention to Confiscate Large Estates:
 Readings in Philippine History

● In the Malolos Constitution, Aguinaldo expressed his intention to confiscate large

estates, particularly the Friar lands.
Short-Lived Republic:
● The First Philippine Republic was short-lived, and Aguinaldo's plan to confiscate
large estates, including Friar lands, was never implemented.

➢ American Period (1898 - 1935)

“Long live America”
Land Policies and Legislation:
● Americans introduced land policies to address social unrest and land issues in the
Philippines.
● The Philippine Bill of 1902 - set regulations for land ownership, distinguishing
between private individuals and corporate entities.
● The Torrens system - replaced the Spanish land registration system to address issues
with titles and land surveys.
● The Land Registration Act of 1902 or Act No. 496 - placed all private and public
lands under Torrens system.
● The Cadastral Act or Act No. 2259 - speeds up the issuance of Torrens titles.
● The Homestead Program - allowed tenants to acquire land but was not implemented
nationwide and was introduced only in some parts of Mindanao and Northern Luzon,
where there were available public alienable and disposable lands.
● The First Public Land Act or Act No. 926 - provided rules and regulations for
selling and leasing portions of the public domain,completing defective Spanish land
titles, canceling, and confirming Spanish concessions.
● Second Public Land Act of 1919 or Act 2874 - limits the use of agricultural lands to
Filipinos, Americans, and citizens of other countries.
● Act No. 141- amended the Second Public Act of 1919 or Act No. 2874.
● Friar Land Act or Act No. 1120 - provided the administrative and temporary leasing
and selling of friar lands to its tillers.
● Rice Share Tenancy Act of 1933 or Act No. 4054 - regulated relationships between
landowners and tenants of rice (50-50 sharing) and sugar cane lands.
● The Sugarcane Tenancy Contracts Act of 1933 or Act No. 4113 - regulated the
relationship of landlord and tenants in the sugarcane fields and required tenancy
contracts on land planted to sugarcane.
Challenges and Unresolved Issues:
● The situation of farmers did not significantly improve, and land ownership remained
concentrated in the hands of a few.
● There was no limit on the size of landholdings one could possess, leading to further
land concentration.
● More land was placed under tenancy arrangements, perpetuating the issue.
Peasant Uprisings and Formation of Communist Party:
 Readings in Philippine History

● Widespread peasant uprisings, led by groups like Colorum (Luzon) and Sakdalista
(Northeastern Mindanao), occurred in the 1920s and 1930s.
● These uprisings resulted in social disorder and unrest.
● To address the issues of landlords and unjust land ownership, militant peasants and
workers' organizations formed, eventually leading to the birth of the Communist
Party of the Philippines.

➢ Commonwealth Period (1935 - 1942)

“Government for the Filipinos”
Land Ownership and Tenancy Issues:
● Economic and political disparities between landlords and tenants.
● Landlords' growing wealth and power.
● Increased absentee landowners leaving farms to "katiwalas."
● Poor and unjust management of haciendas.
● Inadequate land sizes for sustaining peasant farmers' livelihoods.
● Burdens faced by tenants and farmers, including fines, taxation, and usury.
● Lack of credit and marketing systems for rice.
● Widespread peasant uprisings as a consequence of these issues.
Government Response:
● Recognition by the government, led by President Manuel L. Quezon, of the need for
immediate land reform programs.
● Consideration of purchasing friar lands to address inequitable land ownership.
● Potential transformation of the Homestead program into a massive resettlement
program.
Significant legislation enacted during Commonwealth Period:
● 1935 Constitution – "The promotion of social justice to ensure the well-being and
economic security of all people should be the concern of the State"
● Commonwealth Act No. 178 (An Amendment to Rice Tenancy Act No. 4045),
Nov. 13, 1936 – Provided for certain controls in the landlord-tenant relationships
● National Rice and Corn Corporation (NARIC), 1936 – Established the price of rice
and corn thereby helping the poor tenants as well as consumers.
● Commonwealth Act. No. 461, 1937 – Specified reasons for the dismissal of tenants
and only with the approval of the Tenancy Division of the Department of Justice.
● Rural Program Administration, created March 2, 1939 – Provided the purchase
and lease of haciendas and their sale and lease to the tenants.
● Commonwealth Act No. 441 enacted on June 3, 1939 – Created the National
Settlement Administration with a capital stock of P20,000,000.

➢ Japanese Occupation
“The Era of Hukbalahap”
 Readings in Philippine History

World War II Outbreak and Hukbalahap Control:

● 1939: Second World War II began in Europe.
● 1941: Second World War II started in the Pacific.
● During the war, Hukbalahap controlled areas of Central Luzon, affecting landlords
based on their support.
Peasant and Worker Mobilization During Japanese Occupation:
● The end of the war led to the reversal of gains made by peasants.
● On March 29, 1942, pon the Japanese arrival in the Philippines, peasants and workers
established the Hukbalahap (Hukbong Bayan Laban sa mga Hapon), an anti-Japanese
group and redistributed land during the Japanese occupation.
Land Redistribution and Post-War Reversal:
● The war presented an opportunity for pro-poor initiatives, briefly allowing peasants to
overpower landlords, but post-war, with the help of military police and civilian
guards, landlords regained their lands from the Hukbalahap.

➢ Philippine Republic
“The New Republic”
● 1946: The Philippines gained independence.
● After independence, land tenure issues persisted and worsened in some regions.
● The Philippine Congress revised tenancy laws to address these problems.

4. Evolution of Initiatives on Land Reform Completed

Discussion Outline & Transcript

Manuel L. Quezon (1935 - 1944)

Initiatives:
● Republic Act No. 4054: Rice Tenancy Law
● Commonwealth Act No. 461
● Commonwealth Act No. 608
● Establishment of National Rice Corn Corporation (NARICC)
● Commonwealth Act No. 441: National Land Settlement Administration

Challenges:
● Difficulty of implementation due to conflict of interest
● Limited budget allocation
● World War II
 Readings in Philippine History

Manuel Roxas (1946 - 1948)

Initiatives:
● Republic Act No. 34: The Philippine Rice Share Tenancy Act
● 8,000 hectares of lands sold to landless farmers

Challenges:
● Lack of support facilities

Elpidio R. Quirino (1948 - 1953)

Initiatives:
● Executive Order No. 355: Land Settlement Development Corp. (LASEDECO)

Challenges:
● Limited post-war resources

Ramon Magsaysay (1953 - 1957)

Initiatives:
● Republic Act No. 1199: Agricultural Tenancy Act (1954)
● Republic Act No. 1160: Establishment of NARRA (1954)
● Republic Act No. 1400: Land Reform Act / Land to the Landless Program
(1955)
● Republic Act No. 1266: Expropriation of Hacienda del Rosario (1955)
● Establishment of the Court of Agricultural Relations (1955)
● Creation of the Agricultural Tenancy Commission
● Creation of the Agricultural Credit and Cooperative Financing Administration
(ACCFA)
● Spearheaded the Establishment of the Agricultural and Industrial Bank

Challenges
● Lack of funds and inadequate support services
● Uncooperative landlords

Carol P. Garcia (1957 - 1961)

Initiatives:
● Continued the Implementation of the Land Reform Programs of President
Magsaysay.

Diosdado Macapagal (1961 - 1965)

“Father of Agrarian Reform”
 Readings in Philippine History

Initiatives:
● Republic Act No. 3844: Agricultural Land Reform Code (Aug 8, 1963)
○ Abolishment of Share Tenancy in the Philippines
○ Emphasized cultivator relationship and farmer independence, equity,
productivity improvement and the public distribution of land
Challenges:
● No effort to provide funding for implementation

Ferdinand E. Marcos (1965 - 1986)

Initiatives:
● Republic Act No. 6389: The Code of Agrarian Reforms
○ Land Tenure Program
○ Institutional Development
○ Physical Development
○ Agricultural Development
○ Human Resources
● Republic Act No. 6390
● Creation of the Department of Agrarian Reform
● Presidential Decree No. 2
● Presidential Decree No. 27

Challenges:
● Limited scope
● Enabled monopoly
● Deprivation of liberty without due process of law

Corazon C. Aquino (1986 - 1992)

Initiatives:
● Article 2, Section 21 (1987 Constitution)
● Proclamation No. 131: Comprehensive Agrarian Reform Program (CARP)
● Executive Order No. 129-A, s. 1987: Reorganization Act of the Department of
Agrarian Reform
● Executive Order No. 228
● Executive Order No. 229
● Executive Order No. 6657: Comprehensive Agrarian Reform Law
Executive Orders to Strengthen CARP
● Executive Order No. 405
● Executive Order No. 406
● Executive Order No. 407
● Executive Order No. 448
 Readings in Philippine History

● Introduction of the Present Adjudication System

Challenges:
● Garchitorena Land Scam
● Absence of a clear guideline for problems in land use conversion
● Major budgetary shortfall
● Constant changes in DAR Leadership
● Allegations

Fidel V. Ramos (1992 - 1998)

Initiatives:
● Brought back supper of key stakeholders of CARP
● Credited for strengthening DAR: Internal systems enhancement and resource
mobilization
● DAR Administrative Order No. 2 (1992)
● DAR Administrative Order No. 1 (1993)
● DAR-LBP Administrative Order No. 3 (1994)
● DAR Administrative Order No. 1 (1995)
● DAR Administrative Order No. 2 (1995)
● DAR Administrative Order No. 2 (1996)
● DAR Administrative Order No. 2 (1997)
● DAR Administrative Order No. 8 (1997)
● DAR Memorandum Circular No. 7 (1993)

Challenges:
● Failure in enforcing the installation of some farmer beneficiaries on awarded
lands
● “Non-physical installations of farmer-beneficiaries has been the norm rather
than the exception”
● Complains on the slowness in the acquisition and distribution of privately
owned lands

Joseph Ejercito Estrada (1998 - 2001)

Initiatives
● MAGKASAKA: Magkabalikat para Sa Kaunlarang Agraryo
● Reworked performance targets
● Launched a series of land occupations
● Helped set up the agrarian justice fund
● International Conference on Agrarian Reform and Rural Development
● DAR-DA-DENR Convergence Initiative
 Readings in Philippine History

Challenges:
● Fiscal constraints
● VOS (voluntary offer-to-sell) schemes

Gloria Macapagal – Arroyo (2001 – 2010)

Initiatives
● BAYAN-ANIHAN Framework
○ Salin-Lupa
○ Katarungan
○ Bayanihan
○ Kabayanihan (Konsehong Bayan para sa Anihan)
○ Kamalayan
● KARZONEs / KALAHI ARZones Program: Kapit-Bisig-sa-Kahirapan
Agrarian Reform Zones
● Gulayan-Magsasakang-Agraryo
● Diosdado Macapagal Scholar Program
● Quota system to compel adjudicators

Benigno Simeon “Noynoy” C. Aquino III (2010–2016)

Initiatives:
● Republic Act No. 9700: Comprehensive Agrarian Reform Program Extension
with Reforms (CARPER)
○ Improve the efficiency of LAD processes
○ Compensate landowners promptly
○ Enhance collaboration of CARP implementing agencies
○ Unitilize approaches like job-sharing to optimize resources
● DAR’s Program Beneficiaries Development (PDB)
○ Enhance convergence initiatives
○ Inking public-private partnerships (PPPs)
○ Expanding official development assistance (ODA)
○ Addressing challenges and promote development in AR areas
● Agrarian Justice Delivery (AJD)
○ Legal framework to expedite LAD processes and ensure free and
informed agreements and decisions
○ Improving capabilities of DAR lawyers and legal officers
○ Utilizing ICT to enhance legal work

President Rodrigo Roa Duterte (2016 – present)

Initiatives:
● “Aggressive” land reform programs
 Readings in Philippine History

● Launched 2nd Phase of Agrarian Reform for land distribution

● To place almost all public lands under agrarian reform
● Anti-corruption task force to handle anomalous activities within DAR
● “Oplan Zero Backlog” to fast track implementation of CARP

Manuel Roxas (1946 - 1948)

Initiatives:
● Republic Act No. 34: The Philippine Rice Share Tenancy Act
● 8,000 hectares of lands sold to landless farmers

Challenges:
● Lack of support facilities

Elpidio R. Quirino (1948 - 1953)

Initiatives:
● Executive Order No. 355: Land Settlement Development Corp. (LASEDECO)

Challenges:
● Limited post-war resources

Ramon Magsaysay (1953 - 1957)

Initiatives:
● Republic Act No. 1199: Agricultural Tenancy Act (1954)
● Republic Act No. 1160: Establishment of NARRA (1954)
● Republic Act No. 1400: Land Reform Act / Land to the Landless Program
(1955)
● Republic Act No. 1266: Expropriation of Hacienda del Rosario (1955)
● Establishment of the Court of Agricultural Relations (1955)
● Creation of the Agricultural Tenancy Commission
● Creation of the Agricultural Credit and Cooperative Financing Administration
(ACCFA)
● Spearheaded the Establishment of the Agricultural and Industrial Bank

Challenges
● Lack of funds and inadequate support services
● Uncooperative landlords

Carol P. Garcia (1957 - 1961)

 Readings in Philippine History

Initiatives:
● Continued the Implementation of the Land Reform Programs of President
Magsaysay.

Diosdado Macapagal (1961 - 1965)

“Father of Agrarian Reform”
Initiatives:
● Republic Act No. 3844: Agricultural Land Reform Code (Aug 8, 1963)
○ Abolishment of Share Tenancy in the Philippines
○ Emphasized cultivator relationship and farmer independence, equity,
productivity improvement and the public distribution of land
Challenges:
● No effort to provide funding for implementation

Ferdinand E. Marcos (1965 - 1986)

Initiatives:
● Republic Act No. 6389: The Code of Agrarian Reforms
○ Land Tenure Program
○ Institutional Development
○ Physical Development
○ Agricultural Development
○ Human Resources
● Republic Act No. 6390
● Creation of the Department of Agrarian Reform
● Presidential Decree No. 2
● Presidential Decree No. 27

Challenges:
● Limited scope
● Enabled monopoly
● Deprivation of liberty without due process of law

Corazon C. Aquino (1986 - 1992)

Initiatives:
● Article 2, Section 21 (1987 Constitution)
● Proclamation No. 131: Comprehensive Agrarian Reform Program (CARP)
● Executive Order No. 129-A, s. 1987: Reorganization Act of the Department of
Agrarian Reform
● Executive Order No. 228
 Readings in Philippine History

● Executive Order No. 229

● Executive Order No. 6657: Comprehensive Agrarian Reform Law
Executive Orders to Strengthen CARP
● Executive Order No. 405
● Executive Order No. 406
● Executive Order No. 407
● Executive Order No. 448
● Introduction of the Present Adjudication System

Challenges:
● Garchitorena Land Scam
● Absence of a clear guideline for problems in land use conversion
● Major budgetary shortfall
● Constant changes in DAR Leadership
● Allegations

Fidel V. Ramos (1992 - 1998)

Initiatives:
● Brought back supper of key stakeholders of CARP
● Credited for strengthening DAR: Internal systems enhancement and resource
mobilization
● DAR Administrative Order No. 2 (1992)
● DAR Administrative Order No. 1 (1993)
● DAR-LBP Administrative Order No. 3 (1994)
● DAR Administrative Order No. 1 (1995)
● DAR Administrative Order No. 2 (1995)
● DAR Administrative Order No. 2 (1996)
● DAR Administrative Order No. 2 (1997)
● DAR Administrative Order No. 8 (1997)
● DAR Memorandum Circular No. 7 (1993)

Challenges:
● Failure in enforcing the installation of some farmer beneficiaries on awarded
lands
● “Non-physical installations of farmer-beneficiaries has been the norm rather
than the exception”
● Complains on the slowness in the acquisition and distribution of privately
owned lands

Joseph Ejercito Estrada (1998 - 2001)

Initiatives
 Readings in Philippine History

● MAGKASAKA: Magkabalikat para Sa Kaunlarang Agraryo

● Reworked performance targets
● Launched a series of land occupations
● Helped set up the agrarian justice fund
● International Conference on Agrarian Reform and Rural Development
● DAR-DA-DENR Convergence Initiative

Challenges:
● Fiscal constraints
● VOS (voluntary offer-to-sell) schemes

Gloria Macapagal – Arroyo (2001 – 2010)

Initiatives
● BAYAN-ANIHAN Framework
○ Salin-Lupa
○ Katarungan
○ Bayanihan
○ Kabayanihan (Konsehong Bayan para sa Anihan)
○ Kamalayan
● KARZONEs / KALAHI ARZones Program: Kapit-Bisig-sa-Kahirapan
Agrarian Reform Zones
● Gulayan-Magsasakang-Agraryo
● Diosdado Macapagal Scholar Program
● Quota system to compel adjudicators

Benigno Simeon “Noynoy” C. Aquino III (2010–2016)

Initiatives:
● Republic Act No. 9700: Comprehensive Agrarian Reform Program Extension
with Reforms (CARPER)
○ Improve the efficiency of LAD processes
○ Compensate landowners promptly
○ Enhance collaboration of CARP implementing agencies
○ Unitilize approaches like job-sharing to optimize resources
● DAR’s Program Beneficiaries Development (PDB)
○ Enhance convergence initiatives
○ Inking public-private partnerships (PPPs)
○ Expanding official development assistance (ODA)
○ Addressing challenges and promote development in AR areas
● Agrarian Justice Delivery (AJD)
○ Legal framework to expedite LAD processes and ensure free and
informed agreements and decisions
 Readings in Philippine History

○ Improving capabilities of DAR lawyers and legal officers

○ Utilizing ICT to enhance legal work

President Rodrigo Roa Duterte (2016 – present)

Initiatives:
● “Aggressive” land reform programs
● Launched 2nd Phase of Agrarian Reform for land distribution
● To place almost all public lands under agrarian reform
● Anti-corruption task force to handle anomalous activities within DAR
● “Oplan Zero Backlog” to fast track implementation of CARP

5. Agrarian Reform Policies In Progress

6. Advantages and Disadvantages Not Started

Resources:
Agrarian Reform History
https://ustep.ustp.edu.ph/pluginfile.php/605770/mod_resource/content/1/DAR-Historical-Bac
kground1.pdf
 Readings in Philippine History

Introduction: Trivia (Rhenel)

Discussion:

What is Agrarian Reform?

DAR Historical Background

Agrarian Reform Historical Background Part I

Ice Breaker: Guess the Emoji (Mark)

The Kaingin System - 🔪🌳🔥🌾

President Gloria Macapagal Arroyo - 🦽👩‍💼
Agrarian Land Reform - 🌾👨‍🌾🚜💼
Discussion:

Agrarian Reform Historical Background Part II (American Period)

Evolution of Initiatives on Land Reform

Agrarian Reform Policies

Advantages and Disadvantages

Outro:

(Roxanne)