HEIRS OF MARIO MALABANAN vs.

REPUBLIC OF THE PHILIPPINES

[G.R. No. 179987 . April 29, 2009]

FACTS:

One main reason why the informal sector has not become formal is that from Indonesia to Brazil, 90 percent of
the informal lands are not titled and registered. This is a generalized phenomenon in the so-called Third World.
And it has many consequences.

xxx

The question is: How is it that so many governments, from Suharto's in Indonesia to Fujimori's in Peru, have
wanted to title these people and have not been able to do so effectively? One reason is that none of the state
systems in Asia or Latin America can gather proof of informal titles. In Peru, the informals have means of
proving property ownership to each other which are not the same means developed by the Spanish legal
system. The informals have their own papers, their own forms of agreements, and their own systems of
registration, all of which are very clearly stated in the maps which they use for their own informal business
transactions.

If you take a walk through the countryside, from Indonesia to Peru, and you walk by field after field--in each
field a different dog is going to bark at you. Even dogs know what private property is all about. The only one
who does not know it is the government. The issue is that there exists a "common law" and an "informal law"
which the Latin American formal legal system does not know how to recognize.

- Hernando De Soto1

This decision inevitably affects all untitled lands currently in possession of persons and entities other than the
Philippine government. The petition, while unremarkable as to the facts, was accepted by the Court en banc in
order to provide definitive clarity to the applicability and scope of original registration proceedings under
Sections 14(1) and 14(2) of the Property Registration Decree. In doing so, the Court confronts not only the
relevant provisions of the Public Land Act and the Civil Code, but also the reality on the ground. The
countrywide phenomenon of untitled lands, as well as the problem of informal settlement it has spawned, has
unfortunately been treated with benign neglect. Yet our current laws are hemmed in by their own
circumscriptions in addressing the phenomenon. Still, the duty on our part is primarily to decide cases before
us in accord with the Constitution and the legal principles that have developed our public land law, though our
social obligations dissuade us from casting a blind eye on the endemic problems.

I.

On 20 February 1998, Mario Malabanan filed an application for land registration covering a parcel of land
identified as Lot 9864-A, Cad-452-D, Silang Cadastre,2 situated in Barangay Tibig, Silang Cavite, and
consisting of 71,324 square meters. Malabanan claimed that he had purchased the property from Eduardo
Velazco,3 and that he and his predecessors-in-interest had been in open, notorious, and continuous adverse
and peaceful possession of the land for more than thirty (30) years.

The application was raffled to the Regional Trial Court of (RTC) Cavite-Tagaytay City, Branch 18. The Office of
the Solicitor General (OSG) duly designated the Assistant Provincial Prosecutor of Cavite, Jose Velazco, Jr., to
appear on behalf of the State.4 Apart from presenting documentary evidence, Malabanan himself and his
witness, Aristedes Velazco, testified at the hearing. Velazco testified that the property was originally belonged
to a twenty-two hectare property owned by his great-grandfather, Lino Velazco. Lino had four sons– Benedicto,
Gregorio, Eduardo and Esteban–the fourth being Aristedes’s grandfather. Upon Lino’s death, his four sons
inherited the property and divided it among themselves. But by 1966, Esteban’s wife, Magdalena, had become
the administrator of all the properties inherited by the Velazco sons from their father, Lino. After the death of
Esteban and Magdalena, their son Virgilio succeeded them in administering the properties, including Lot 9864-
A, which originally belonged to his uncle, Eduardo Velazco. It was this property that was sold by Eduardo
Velazco to Malabanan.5

Assistant Provincial Prosecutor Jose Velazco, Jr. did not cross-examine Aristedes Velazco. He further
manifested that he "also [knew] the property and I affirm the truth of the testimony given by Mr. Velazco." 6 The
Republic of the Philippines likewise did not present any evidence to controvert the application.

Among the evidence presented by Malabanan during trial was a Certification dated 11 June 2001, issued by
the Community Environment & Natural Resources Office, Department of Environment and Natural Resources
(CENRO-DENR), which stated that the subject property was "verified to be within the Alienable or Disposable
land per Land Classification Map No. 3013 established under Project No. 20-A and approved as such under
FAO 4-1656 on March 15, 1982."7

On 3 December 2002, the RTC rendered judgment in favor of Malabanan, the dispositive portion of which
reads:

WHEREFORE, this Court hereby approves this application for registration and thus places under the operation
of Act 141, Act 496 and/or P.D. 1529, otherwise known as Property Registration Law, the lands described in
Plan Csd-04-0173123-D, Lot 9864-A and containing an area of Seventy One Thousand Three Hundred Twenty
Four (71,324) Square Meters, as supported by its technical description now forming part of the record of this
case, in addition to other proofs adduced in the name of MARIO MALABANAN, who is of legal age, Filipino,
widower, and with residence at Munting Ilog, Silang, Cavite.

Once this Decision becomes final and executory, the corresponding decree of registration shall forthwith issue.

SO ORDERED.

The Republic interposed an appeal to the Court of Appeals, arguing that Malabanan had failed to prove that
the property belonged to the alienable and disposable land of the public domain, and that the RTC had erred in
finding that he had been in possession of the property in the manner and for the length of time required by law
for confirmation of imperfect title.

On 23 February 2007, the Court of Appeals rendered a Decision8 reversing the RTC and dismissing the
application of Malabanan. The appellate court held that under Section 14(1) of the Property Registration
Decree any period of possession prior to the classification of the lots as alienable and disposable was
inconsequential and should be excluded from the computation of the period of possession. Thus, the appellate
court noted that since the CENRO-DENR certification had verified that the property was declared alienable and
disposable only on 15 March 1982, the Velazcos’ possession prior to that date could not be factored in the
computation of the period of possession. This interpretation of the Court of Appeals of Section 14(1) of the
Property Registration Decree was based on the Court’s ruling in Republic v. Herbieto.9

Malabanan died while the case was pending with the Court of Appeals;10 hence, it was his heirs who appealed
the decision of the appellate court. Petitioners, before this Court, rely on our ruling in Republic v.
Naguit,11 which was handed down just four months prior to Herbieto. Petitioners suggest that the discussion in
Herbieto cited by the Court of Appeals is actually obiter dictum since the Metropolitan Trial Court therein which
had directed the registration of the property had no jurisdiction in the first place since the requisite notice of
hearing was published only after the hearing had already begun. Naguit, petitioners argue, remains the
controlling doctrine, especially when the property in question is agricultural land. Therefore, with respect to
agricultural lands, any possession prior to the declaration of the alienable property as disposable may be
counted in reckoning the period of possession to perfect title under the Public Land Act and the Property
Registration Decree.

The petition was referred to the Court en banc,12 and on 11 November 2008, the case was heard on oral
arguments. The Court formulated the principal issues for the oral arguments, to wit:
 1. In order that an alienable and disposable land of the public domain may be registered under Section
14(1) of Presidential Decree No. 1529, otherwise known as the Property Registration Decree, should
the land be classified as alienable and disposable as of June 12, 1945 or is it sufficient that such
classification occur at any time prior to the filing of the applicant for registration provided that it is
established that the applicant has been in open, continuous, exclusive and notorious possession of the
land under a bona fide claim of ownership since June 12, 1945 or earlier?

2. For purposes of Section 14(2) of the Property Registration Decree may a parcel of land classified as
alienable and disposable be deemed private land and therefore susceptible to acquisition by
prescription in accordance with the Civil Code?

3. May a parcel of land established as agricultural in character either because of its use or because its
slope is below that of forest lands be registrable under Section 14(2) of the Property Registration
Decree in relation to the provisions of the Civil Code on acquisitive prescription?

4. Are petitioners entitled to the registration of the subject land in their names under Section 14(1) or
Section 14(2) of the Property Registration Decree or both?13

Based on these issues, the parties formulated their respective positions.

With respect to Section 14(1), petitioners reiterate that the analysis of the Court in Naguit is the correct
interpretation of the provision. The seemingly contradictory pronouncement in Herbieto, it is submitted, should
be considered obiter dictum, since the land registration proceedings therein was void ab initio due to lack of
publication of the notice of initial hearing. Petitioners further point out that in Republic v. Bibonia, 14 promulgated
in June of 2007, the Court applied Naguit and adopted the same observation that the preferred interpretation
by the OSG of Section 14(1) was patently absurd. For its part, the OSG remains insistent that for Section 14(1)
to apply, the land should have been classified as alienable and disposable as of 12 June 1945. Apart from
Herbieto, the OSG also cites the subsequent rulings in Buenaventura v. Republic,15 Fieldman Agricultural
Trading v. Republic16 and Republic v. Imperial Credit Corporation,17 as well as the earlier case of Director of
Lands v. Court of Appeals.18

With respect to Section 14(2), petitioners submit that open, continuous, exclusive and notorious possession of
an alienable land of the public domain for more than 30 years ipso jure converts the land into private property,
thus placing it under the coverage of Section 14(2). According to them, it would not matter whether the land
sought to be registered was previously classified as agricultural land of the public domain so long as, at the
time of the application, the property had already been "converted" into private property through prescription. To
bolster their argument, petitioners cite extensively from our 2008 ruling in Republic v. T.A.N. Properties.19

The arguments submitted by the OSG with respect to Section 14(2) are more extensive. The OSG notes that
under Article 1113 of the Civil Code, the acquisitive prescription of properties of the State refers to "patrimonial
property," while Section 14(2) speaks of "private lands." It observes that the Court has yet to decide a case that
presented Section 14(2) as a ground for application for registration, and that the 30-year possession period
refers to the period of possession under Section 48(b) of the Public Land Act, and not the concept of
prescription under the Civil Code. The OSG further submits that, assuming that the 30-year prescriptive period
can run against public lands, said period should be reckoned from the time the public land was declared
alienable and disposable.

Both sides likewise offer special arguments with respect to the particular factual circumstances surrounding the
subject property and the ownership thereof.

II.

First, we discuss Section 14(1) of the Property Registration Decree. For a full understanding of the provision,
reference has to be made to the Public Land Act.
 A.

Commonwealth Act No. 141, also known as the Public Land Act, has, since its enactment, governed the
classification and disposition of lands of the public domain. The President is authorized, from time to time, to
classify the lands of the public domain into alienable and disposable, timber, or mineral lands.20 Alienable and
disposable lands of the public domain are further classified according to their uses into (a) agricultural; (b)
residential, commercial, industrial, or for similar productive purposes; (c) educational, charitable, or other
similar purposes; or (d) reservations for town sites and for public and quasi-public uses.21

May a private person validly seek the registration in his/her name of alienable and disposable lands of the
public domain? Section 11 of the Public Land Act acknowledges that public lands suitable for agricultural
purposes may be disposed of "by confirmation of imperfect or incomplete titles" through "judicial
legalization."22 Section 48(b) of the Public Land Act, as amended by P.D. No. 1073, supplies the details and
unmistakably grants that right, subject to the requisites stated therein:

Sec. 48. The following described citizens of the Philippines, occupying lands of the public domain or claiming
to own any such land or an interest therein, but whose titles have not been perfected or completed, may apply
to the Court of First Instance of the province where the land is located for confirmation of their claims and the
issuance of a certificate of title therefor, under the Land Registration Act, to wit:

xxx

(b) Those who by themselves or through their predecessors in interest have been in open, continuous,
exclusive, and notorious possession and occupation of alienable and disposable lands of the public domain,
under a bona fide claim of acquisition of ownership, since June 12, 1945, or earlier, immediately preceding the
filing of the application for confirmation of title except when prevented by war or force majeure. These shall be
conclusively presumed to have performed all the conditions essential to a Government grant and shall be
entitled to a certificate of title under the provisions of this chapter.

Section 48(b) of Com. Act No. 141 received its present wording in 1977 when the law was amended by P.D.
No. 1073. Two significant amendments were introduced by P.D. No. 1073. First, the term "agricultural lands"
was changed to "alienable and disposable lands of the public domain." The OSG submits that this amendment
restricted the scope of the lands that may be registered.23 This is not actually the case. Under Section 9 of the
Public Land Act, "agricultural lands" are a mere subset of "lands of the public domain alienable or open to
disposition." Evidently, alienable and disposable lands of the public domain are a larger class than only
"agricultural lands."

Second, the length of the requisite possession was changed from possession for "thirty (30) years immediately
preceding the filing of the application" to possession "since June 12, 1945 or earlier." The Court in Naguit
explained:

When the Public Land Act was first promulgated in 1936, the period of possession deemed necessary to vest
the right to register their title to agricultural lands of the public domain commenced from July 26, 1894.
However, this period was amended by R.A. No. 1942, which provided that the bona fide claim of ownership
must have been for at least thirty (30) years. Then in 1977, Section 48(b) of the Public Land Act was again
amended, this time by P.D. No. 1073, which pegged the reckoning date at June 12, 1945. xxx

It bears further observation that Section 48(b) of Com. Act No, 141 is virtually the same as Section 14(1) of the
Property Registration Decree. Said Decree codified the various laws relative to the registration of property,
including lands of the public domain. It is Section 14(1) that operationalizes the registration of such lands of the
public domain. The provision reads:

SECTION 14. Who may apply.— The following persons may file in the proper Court of First Instance an
application for registration of title to land, whether personally or through their duly authorized representatives:
(1) those who by themselves or through their predecessors-in-interest have been in open, continuous,
exclusive and notorious possession and occupation of alienable and disposable lands of the public domain
under a bona fide claim of ownership since June 12, 1945, or earlier.

Notwithstanding the passage of the Property Registration Decree and the inclusion of Section 14(1) therein,
the Public Land Act has remained in effect. Both laws commonly refer to persons or their predecessors-in-
interest who "have been in open, continuous, exclusive and notorious possession and occupation of alienable
and disposable lands of the public domain under a bona fide claim of ownership since June 12, 1945, or
earlier." That circumstance may have led to the impression that one or the other is a redundancy, or that
Section 48(b) of the Public Land Act has somehow been repealed or mooted. That is not the case.

The opening clauses of Section 48 of the Public Land Act and Section 14 of the Property Registration Decree
warrant comparison:

Sec. 48 [of the Public Land Act]. The following described citizens of the Philippines, occupying lands of the
public domain or claiming to own any such land or an interest therein, but whose titles have not been perfected
or completed, may apply to the Court of First Instance of the province where the land is located for
confirmation of their claims and the issuance of a certificate of title therefor, under the Land Registration Act, to
wit:

xxx

Sec. 14 [of the Property Registration Decree]. Who may apply.— The following persons may file in the proper
Court of First Instance an application for registration of title to land, whether personally or through their duly
authorized representatives:

xxx

It is clear that Section 48 of the Public Land Act is more descriptive of the nature of the right enjoyed by the
possessor than Section 14 of the Property Registration Decree, which seems to presume the pre-existence of
the right, rather than establishing the right itself for the first time. It is proper to assert that it is the Public Land
Act, as amended by P.D. No. 1073 effective 25 January 1977, that has primarily established the right of a
Filipino citizen who has been "in open, continuous, exclusive, and notorious possession and occupation of
alienable and disposable lands of the public domain, under a bona fide claim of acquisition of ownership, since
June 12, 1945" to perfect or complete his title by applying with the proper court for the confirmation of his
ownership claim and the issuance of the corresponding certificate of title.

Section 48 can be viewed in conjunction with the afore-quoted Section 11 of the Public Land Act, which
provides that public lands suitable for agricultural purposes may be disposed of by confirmation of imperfect or
incomplete titles, and given the notion that both provisions declare that it is indeed the Public Land Act that
primarily establishes the substantive ownership of the possessor who has been in possession of the property
since 12 June 1945. In turn, Section 14(a) of the Property Registration Decree recognizes the substantive right
granted under Section 48(b) of the Public Land Act, as well provides the corresponding original registration
procedure for the judicial confirmation of an imperfect or incomplete title.

There is another limitation to the right granted under Section 48(b). Section 47 of the Public Land Act limits the
period within which one may exercise the right to seek registration under Section 48. The provision has been
amended several times, most recently by Rep. Act No. 9176 in 2002. It currently reads thus:

Section 47. The persons specified in the next following section are hereby granted time, not to extend beyond
December 31, 2020 within which to avail of the benefits of this Chapter: Provided, That this period shall apply
only where the area applied for does not exceed twelve (12) hectares: Provided, further, That the several
periods of time designated by the President in accordance with Section Forty-Five of this Act shall apply also to
the lands comprised in the provisions of this Chapter, but this Section shall not be construed as prohibiting any
said persons from acting under this Chapter at any time prior to the period fixed by the President.24
Accordingly under the current state of the law, the substantive right granted under Section 48(b) may be
availed of only until 31 December 2020.

B.

Despite the clear text of Section 48(b) of the Public Land Act, as amended and Section 14(a) of the Property
Registration Decree, the OSG has adopted the position that for one to acquire the right to seek registration of
an alienable and disposable land of the public domain, it is not enough that the applicant and his/her
predecessors-in-interest be in possession under a bona fide claim of ownership since 12 June 1945; the
alienable and disposable character of the property must have been declared also as of 12 June 1945.
Following the OSG’s approach, all lands certified as alienable and disposable after 12 June 1945 cannot be
registered either under Section 14(1) of the Property Registration Decree or Section 48(b) of the Public Land
Act as amended. The absurdity of such an implication was discussed in Naguit.

Petitioner suggests an interpretation that the alienable and disposable character of the land should have
already been established since June 12, 1945 or earlier. This is not borne out by the plain meaning of Section
14(1). "Since June 12, 1945," as used in the provision, qualifies its antecedent phrase "under a bonafide claim
of ownership." Generally speaking, qualifying words restrict or modify only the words or phrases to which they
are immediately associated, and not those distantly or remotely located.25 Ad proximum antecedents fiat
relation nisi impediatur sentencia.

Besides, we are mindful of the absurdity that would result if we adopt petitioner’s position. Absent a legislative
amendment, the rule would be, adopting the OSG’s view, that all lands of the public domain which were not
declared alienable or disposable before June 12, 1945 would not be susceptible to original registration, no
matter the length of unchallenged possession by the occupant. Such interpretation renders paragraph (1) of
Section 14 virtually inoperative and even precludes the government from giving it effect even as it decides to
reclassify public agricultural lands as alienable and disposable. The unreasonableness of the situation would
even be aggravated considering that before June 12, 1945, the Philippines was not yet even considered an
independent state.

Accordingly, the Court in Naguit explained:

[T]he more reasonable interpretation of Section 14(1) is that it merely requires the property sought to be
registered as already alienable and disposable at the time the application for registration of title is filed. If the
State, at the time the application is made, has not yet deemed it proper to release the property for alienation or
disposition, the presumption is that the government is still reserving the right to utilize the property; hence, the
need to preserve its ownership in the State irrespective of the length of adverse possession even if in good
faith. However, if the property has already been classified as alienable and disposable, as it is in this case,
then there is already an intention on the part of the State to abdicate its exclusive prerogative over the
property.

The Court declares that the correct interpretation of Section 14(1) is that which was adopted in Naguit. The
contrary pronouncement in Herbieto, as pointed out in Naguit, absurdly limits the application of the provision to
the point of virtual inutility since it would only cover lands actually declared alienable and disposable prior to 12
June 1945, even if the current possessor is able to establish open, continuous, exclusive and notorious
possession under a bona fide claim of ownership long before that date.

Moreover, the Naguit interpretation allows more possessors under a bona fide claim of ownership to avail of
judicial confirmation of their imperfect titles than what would be feasible under Herbieto. This balancing fact is
significant, especially considering our forthcoming discussion on the scope and reach of Section 14(2) of the
Property Registration Decree.

Petitioners make the salient observation that the contradictory passages from Herbieto are obiter dicta since
the land registration proceedings therein is void ab initio in the first place due to lack of the requisite publication
of the notice of initial hearing. There is no need to explicitly overturn Herbieto, as it suffices that the Court’s
acknowledgment that the particular line of argument used therein concerning Section 14(1) is indeed obiter.

It may be noted that in the subsequent case of Buenaventura,26 the Court, citing Herbieto, again stated that
"[a]ny period of possession prior to the date when the [s]ubject [property was] classified as alienable and
disposable is inconsequential and should be excluded from the computation of the period of possession…"
That statement, in the context of Section 14(1), is certainly erroneous. Nonetheless, the passage as cited in
Buenaventura should again be considered as obiter. The application therein was ultimately granted, citing
Section 14(2). The evidence submitted by petitioners therein did not establish any mode of possession on their
part prior to 1948, thereby precluding the application of Section 14(1). It is not even apparent from the decision
whether petitioners therein had claimed entitlement to original registration following Section 14(1), their position
being that they had been in exclusive possession under a bona fide claim of ownership for over fifty (50) years,
but not before 12 June 1945.

Thus, neither Herbieto nor its principal discipular ruling Buenaventura has any precedental value with respect
to Section 14(1). On the other hand, the ratio of Naguit is embedded in Section 14(1), since it precisely
involved situation wherein the applicant had been in exclusive possession under a bona fide claim of
ownership prior to 12 June 1945. The Court’s interpretation of Section 14(1) therein was decisive to the
resolution of the case. Any doubt as to which between Naguit or Herbieto provides the final word of the Court
on Section 14(1) is now settled in favor of Naguit.

We noted in Naguit that it should be distinguished from Bracewell v. Court of Appeals27 since in the latter, the
application for registration had been filed before the land was declared alienable or disposable. The dissent
though pronounces Bracewell as the better rule between the two. Yet two years after Bracewell, its ponente,
the esteemed Justice Consuelo Ynares-Santiago, penned the ruling in Republic v. Ceniza,28 which involved a
claim of possession that extended back to 1927 over a public domain land that was declared alienable and
disposable only in 1980. Ceniza cited Bracewell, quoted extensively from it, and following the mindset of the
dissent, the attempt at registration in Ceniza should have failed. Not so.

To prove that the land subject of an application for registration is alienable, an applicant must establish the
existence of a positive act of the government such as a presidential proclamation or an executive order; an
administrative action; investigation reports of Bureau of Lands investigators; and a legislative act or a statute.

In this case, private respondents presented a certification dated November 25, 1994, issued by Eduardo M.
Inting, the Community Environment and Natural Resources Officer in the Department of Environment and
Natural Resources Office in Cebu City, stating that the lots involved were "found to be within the alienable and
disposable (sic) Block-I, Land Classification Project No. 32-A, per map 2962 4-I555 dated December 9, 1980."
This is sufficient evidence to show the real character of the land subject of private respondents’ application.
Further, the certification enjoys a presumption of regularity in the absence of contradictory evidence, which is
true in this case. Worth noting also was the observation of the Court of Appeals stating that:

[n]o opposition was filed by the Bureaus of Lands and Forestry to contest the application of appellees on the
ground that the property still forms part of the public domain. Nor is there any showing that the lots in question
are forestal land....

Thus, while the Court of Appeals erred in ruling that mere possession of public land for the period required by
law would entitle its occupant to a confirmation of imperfect title, it did not err in ruling in favor of private
respondents as far as the first requirement in Section 48(b) of the Public Land Act is concerned, for they were
able to overcome the burden of proving the alienability of the land subject of their application.

As correctly found by the Court of Appeals, private respondents were able to prove their open, continuous,
exclusive and notorious possession of the subject land even before the year 1927. As a rule, we are bound by
the factual findings of the Court of Appeals. Although there are exceptions, petitioner did not show that this is
one of them.29
Why did the Court in Ceniza, through the same eminent member who authored Bracewell, sanction the
registration under Section 48(b) of public domain lands declared alienable or disposable thirty-five (35) years
and 180 days after 12 June 1945? The telling difference is that in Ceniza, the application for registration was
filed nearly six (6) years after the land had been declared alienable or disposable, while in Bracewell, the
application was filed nine (9) years before the land was declared alienable or disposable. That crucial
difference was also stressed in Naguit to contradistinguish it from Bracewell, a difference which the dissent
seeks to belittle.

III.

We next ascertain the correct framework of analysis with respect to Section 14(2). The provision reads:

SECTION 14. Who may apply. — The following persons may file in the proper Court of First Instance an
application for registration of title to land, whether personally or through their duly authorized representatives:

xxx

(2) Those who have acquired ownership over private lands by prescription under the provisions of existing
laws.

The Court in Naguit offered the following discussion concerning Section 14(2), which we did even then
recognize, and still do, to be an obiter dictum, but we nonetheless refer to it as material for further discussion,
thus:

Did the enactment of the Property Registration Decree and the amendatory P.D. No. 1073 preclude the
application for registration of alienable lands of the public domain, possession over which commenced only
after June 12, 1945? It did not, considering Section 14(2) of the Property Registration Decree, which governs
and authorizes the application of "those who have acquired ownership of private lands by prescription under
the provisions of existing laws."

Prescription is one of the modes of acquiring ownership under the Civil Code.[30 ] There is a consistent
jurisprudential rule that properties classified as alienable public land may be converted into private property by
reason of open, continuous and exclusive possession of at least thirty (30) years.[31 ] With such conversion,
such property may now fall within the contemplation of "private lands" under Section 14(2), and thus
susceptible to registration by those who have acquired ownership through prescription. Thus, even if
possession of the alienable public land commenced on a date later than June 12, 1945, and such possession
being been open, continuous and exclusive, then the possessor may have the right to register the land by
virtue of Section 14(2) of the Property Registration Decree.

Naguit did not involve the application of Section 14(2), unlike in this case where petitioners have based their
registration bid primarily on that provision, and where the evidence definitively establishes their claim of
possession only as far back as 1948. It is in this case that we can properly appreciate the nuances of the
provision.

A.

The obiter in Naguit cited the Civil Code provisions on prescription as the possible basis for application for
original registration under Section 14(2). Specifically, it is Article 1113 which provides legal foundation for the
application. It reads:

All things which are within the commerce of men are susceptible of prescription, unless otherwise provided.
Property of the State or any of its subdivisions not patrimonial in character shall not be the object of
prescription.
It is clear under the Civil Code that where lands of the public domain are patrimonial in character, they are
susceptible to acquisitive prescription. On the other hand, among the public domain lands that are not
susceptible to acquisitive prescription are timber lands and mineral lands. The Constitution itself proscribes
private ownership of timber or mineral lands.

There are in fact several provisions in the Civil Code concerning the acquisition of real property through
prescription. Ownership of real property may be acquired by ordinary prescription of ten (10) years,32 or
through extraordinary prescription of thirty (30) years.33 Ordinary acquisitive prescription requires possession in
good faith,34 as well as just title.35

When Section 14(2) of the Property Registration Decree explicitly provides that persons "who have acquired
ownership over private lands by prescription under the provisions of existing laws," it unmistakably refers to the
Civil Code as a valid basis for the registration of lands. The Civil Code is the only existing law that specifically
allows the acquisition by prescription of private lands, including patrimonial property belonging to the State.
Thus, the critical question that needs affirmation is whether Section 14(2) does encompass original registration
proceedings over patrimonial property of the State, which a private person has acquired through prescription.

The Naguit obiter had adverted to a frequently reiterated jurisprudence holding that properties classified as
alienable public land may be converted into private property by reason of open, continuous and exclusive
possession of at least thirty (30) years.36 Yet if we ascertain the source of the "thirty-year" period, additional
complexities relating to Section 14(2) and to how exactly it operates would emerge. For there are in fact two
distinct origins of the thirty (30)-year rule.

The first source is Rep. Act No. 1942, enacted in 1957, which amended Section 48(b) of the Public Land Act by
granting the right to seek original registration of alienable public lands through possession in the concept of an
owner for at least thirty years.

The following-described citizens of the Philippines, occupying lands of the public domain or claiming to own
any such lands or an interest therein, but whose titles have not been perfected or completed, may apply to the
Court of First Instance of the province where the land is located for confirmation of their claims and the
issuance of a certificate of title therefor, under the Land Registration Act, to wit:

xxxxxxxxx

(b) Those who by themselves or through their predecessors in interest have been in open, continuous,
exclusive and notorious possession and occupation of agricultural lands of the public domain, under a bona
fide claim of acquisition of ownership, for at least thirty years immediately preceding the filing of the application
for confirmation of title, except when prevented by war or force majeure. These shall be conclusively presumed
to have performed all the conditions essential to a Government grant and shall be entitled to a certificate of title
under the provisions of this Chapter. (emphasis supplied)37

This provision was repealed in 1977 with the enactment of P.D. 1073, which made the date 12 June 1945 the
reckoning point for the first time. Nonetheless, applications for registration filed prior to 1977 could have
invoked the 30-year rule introduced by Rep. Act No. 1942.

The second source is Section 14(2) of P.D. 1529 itself, at least by implication, as it applies the rules on
prescription under the Civil Code, particularly Article 1113 in relation to Article 1137. Note that there are two
kinds of prescription under the Civil Code–ordinary acquisitive prescription and extraordinary acquisitive
prescription, which, under Article 1137, is completed "through uninterrupted adverse possession… for thirty
years, without need of title or of good faith."

Obviously, the first source of the thirty (30)-year period rule, Rep. Act No. 1942, became unavailable after
1977. At present, the only legal basis for the thirty (30)-year period is the law on prescription under the Civil
Code, as mandated under Section 14(2). However, there is a material difference between how the thirty (30)-
year rule operated under Rep. Act No. 1942 and how it did under the Civil Code.
Section 48(b) of the Public Land Act, as amended by Rep. Act No. 1942, did not refer to or call into application
the Civil Code provisions on prescription. It merely set forth a requisite thirty-year possession period
immediately preceding the application for confirmation of title, without any qualification as to whether the
property should be declared alienable at the beginning of, and continue as such, throughout the entire thirty-
(30) years. There is neither statutory nor jurisprudential basis to assert Rep. Act No. 1942 had mandated such
a requirement,38 similar to our earlier finding with respect to the present language of Section 48(b), which now
sets 12 June 1945 as the point of reference.

Then, with the repeal of Rep. Act No. 1942, the thirty-year possession period as basis for original registration
became Section 14(2) of the Property Registration Decree, which entitled those "who have acquired ownership
over private lands by prescription under the provisions of existing laws" to apply for original registration. Again,
the thirty-year period is derived from the rule on extraordinary prescription under Article 1137 of the Civil Code.
At the same time, Section 14(2) puts into operation the entire regime of prescription under the Civil Code, a
fact which does not hold true with respect to Section 14(1).

B.

Unlike Section 14(1), Section 14(2) explicitly refers to the principles on prescription under existing laws.
Accordingly, we are impelled to apply the civil law concept of prescription, as set forth in the Civil Code, in our
interpretation of Section 14(2). There is no similar demand on our part in the case of Section 14(1).

The critical qualification under Article 1113 of the Civil Code is thus: "[p]roperty of the State or any of its
subdivisions not patrimonial in character shall not be the object of prescription." The identification what consists
of patrimonial property is provided by Articles 420 and 421, which we quote in full:

Art. 420. The following things are property of public dominion:

(1) Those intended for public use, such as roads, canals, rivers, torrents, ports and bridges constructed
by the State, banks, shores, roadsteads, and others of similar character;

(2) Those which belong to the State, without being for public use, and are intended for some public
service or for the development of the national wealth.

Art. 421. All other property of the State, which is not of the character stated in the preceding article, is
patrimonial property

It is clear that property of public dominion, which generally includes property belonging to the State, cannot be
the object of prescription or, indeed, be subject of the commerce of man.39 Lands of the public domain, whether
declared alienable and disposable or not, are property of public dominion and thus insusceptible to acquisition
by prescription.

Let us now explore the effects under the Civil Code of a declaration by the President or any duly authorized
government officer of alienability and disposability of lands of the public domain. Would such lands so declared
alienable and disposable be converted, under the Civil Code, from property of the public dominion into
patrimonial property? After all, by connotative definition, alienable and disposable lands may be the object of
the commerce of man; Article 1113 provides that all things within the commerce of man are susceptible to
prescription; and the same provision further provides that patrimonial property of the State may be acquired by
prescription.

Nonetheless, Article 422 of the Civil Code states that "[p]roperty of public dominion, when no longer intended
for public use or for public service, shall form part of the patrimonial property of the State." It is this provision
that controls how public dominion property may be converted into patrimonial property susceptible to
acquisition by prescription. After all, Article 420 (2) makes clear that those property "which belong to the State,
without being for public use, and are intended for some public service or for the development of the national
wealth" are public dominion property. For as long as the property belongs to the State, although already
classified as alienable or disposable, it remains property of the public dominion if when it is "intended for some
public service or for the development of the national wealth".

Accordingly, there must be an express declaration by the State that the public dominion property is no longer
intended for public service or the development of the national wealth or that the property has been converted
into patrimonial. Without such express declaration, the property, even if classified as alienable or disposable,
remains property of the public dominion, pursuant to Article 420(2), and thus incapable of acquisition by
prescription. It is only when such alienable and disposable lands are expressly declared by the State to be no
longer intended for public service or for the development of the national wealth that the period of acquisitive
prescription can begin to run. Such declaration shall be in the form of a law duly enacted by Congress or a
Presidential Proclamation in cases where the President is duly authorized by law.

It is comprehensible with ease that this reading of Section 14(2) of the Property Registration Decree limits its
scope and reach and thus affects the registrability even of lands already declared alienable and disposable to
the detriment of the bona fide possessors or occupants claiming title to the lands. Yet this interpretation is in
accord with the Regalian doctrine and its concomitant assumption that all lands owned by the State, although
declared alienable or disposable, remain as such and ought to be used only by the Government.

Recourse does not lie with this Court in the matter. The duty of the Court is to apply the Constitution and the
laws in accordance with their language and intent. The remedy is to change the law, which is the province of
the legislative branch. Congress can very well be entreated to amend Section 14(2) of the Property
Registration Decree and pertinent provisions of the Civil Code to liberalize the requirements for judicial
confirmation of imperfect or incomplete titles.

The operation of the foregoing interpretation can be illustrated by an actual example. Republic Act No. 7227,
entitled "An Act Accelerating The Conversion Of Military Reservations Into Other Productive Uses, etc.," is
more commonly known as the BCDA law. Section 2 of the law authorizes the sale of certain military
reservations and portions of military camps in Metro Manila, including Fort Bonifacio and Villamor Air Base. For
purposes of effecting the sale of the military camps, the law mandates the President to transfer such military
lands to the Bases Conversion Development Authority (BCDA)40 which in turn is authorized to own, hold and/or
administer them.41 The President is authorized to sell portions of the military camps, in whole or in
part.42 Accordingly, the BCDA law itself declares that the military lands subject thereof are "alienable and
disposable pursuant to the provisions of existing laws and regulations governing sales of government
properties."43

From the moment the BCDA law was enacted the subject military lands have become alienable and
disposable. However, said lands did not become patrimonial, as the BCDA law itself expressly makes the
reservation that these lands are to be sold in order to raise funds for the conversion of the former American
bases at Clark and Subic.44Such purpose can be tied to either "public service" or "the development of national
wealth" under Article 420(2). Thus, at that time, the lands remained property of the public dominion under
Article 420(2), notwithstanding their status as alienable and disposable. It is upon their sale as authorized
under the BCDA law to a private person or entity that such lands become private property and cease to be
property of the public dominion.

C.

Should public domain lands become patrimonial because they are declared as such in a duly enacted law or
duly promulgated proclamation that they are no longer intended for public service or for the development of the
national wealth, would the period of possession prior to the conversion of such public dominion into patrimonial
be reckoned in counting the prescriptive period in favor of the possessors? We rule in the negative.

The limitation imposed by Article 1113 dissuades us from ruling that the period of possession before the public
domain land becomes patrimonial may be counted for the purpose of completing the prescriptive period.
Possession of public dominion property before it becomes patrimonial cannot be the object of prescription
according to the Civil Code. As the application for registration under Section 14(2) falls wholly within the
framework of prescription under the Civil Code, there is no way that possession during the time that the land
was still classified as public dominion property can be counted to meet the requisites of acquisitive prescription
and justify registration.

Are we being inconsistent in applying divergent rules for Section 14(1) and Section 14(2)? There is no
inconsistency. Section 14(1) mandates registration on the basis of possession, while Section 14(2) entitles
registration on the basis of prescription. Registration under Section 14(1) is extended under the aegis of
the Property Registration Decree and the Public Land Act while registration under Section 14(2) is made
available both by the Property Registration Decree and the Civil Code.

In the same manner, we can distinguish between the thirty-year period under Section 48(b) of the Public Land
Act, as amended by Rep. Act No. 1472, and the thirty-year period available through Section 14(2) of the
Property Registration Decree in relation to Article 1137 of the Civil Code. The period under the former speaks
of a thirty-year period of possession, while the period under the latter concerns a thirty-year period of
extraordinary prescription. Registration under Section 48(b) of the Public Land Act as amended by Rep. Act
No. 1472 is based on thirty years of possession alone without regard to the Civil Code, while the registration
under Section 14(2) of the Property Registration Decree is founded on extraordinary prescription under the
Civil Code.

It may be asked why the principles of prescription under the Civil Code should not apply as well to Section
14(1). Notwithstanding the vaunted status of the Civil Code, it ultimately is just one of numerous statutes,
neither superior nor inferior to other statutes such as the Property Registration Decree. The legislative branch
is not bound to adhere to the framework set forth by the Civil Code when it enacts subsequent legislation.
Section 14(2) manifests a clear intent to interrelate the registration allowed under that provision with the Civil
Code, but no such intent exists with respect to Section 14(1).

IV.

One of the keys to understanding the framework we set forth today is seeing how our land registration
procedures correlate with our law on prescription, which, under the Civil Code, is one of the modes for
acquiring ownership over property.

The Civil Code makes it clear that patrimonial property of the State may be acquired by private persons
through prescription. This is brought about by Article 1113, which states that "[a]ll things which are within the
commerce of man are susceptible to prescription," and that [p]roperty of the State or any of its subdivisions not
patrimonial in character shall not be the object of prescription."

There are two modes of prescription through which immovables may be acquired under the Civil Code. The
first is ordinary acquisitive prescription, which, under Article 1117, requires possession in good faith and with
just title; and, under Article 1134, is completed through possession of ten (10) years. There is nothing in the
Civil Code that bars a person from acquiring patrimonial property of the State through ordinary acquisitive
prescription, nor is there any apparent reason to impose such a rule. At the same time, there are indispensable
requisites–good faith and just title. The ascertainment of good faith involves the application of Articles 526,
527, and 528, as well as Article 1127 of the Civil Code,45 provisions that more or less speak for themselves.

On the other hand, the concept of just title requires some clarification. Under Article 1129, there is just title for
the purposes of prescription "when the adverse claimant came into possession of the property through one of
the modes recognized by law for the acquisition of ownership or other real rights, but the grantor was not the
owner or could not transmit any right." Dr. Tolentino explains:

Just title is an act which has for its purpose the transmission of ownership, and which would have actually
transferred ownership if the grantor had been the owner. This vice or defect is the one cured by prescription.
Examples: sale with delivery, exchange, donation, succession, and dacion in payment.46

The OSG submits that the requirement of just title necessarily precludes the applicability of ordinary acquisitive
prescription to patrimonial property. The major premise for the argument is that "the State, as the owner and
grantor, could not transmit ownership to the possessor before the completion of the required period of
possession."47 It is evident that the OSG erred when it assumed that the grantor referred to in Article 1129 is
the State. The grantor is the one from whom the person invoking ordinary acquisitive prescription derived the
title, whether by sale, exchange, donation, succession or any other mode of the acquisition of ownership or
other real rights.

Earlier, we made it clear that, whether under ordinary prescription or extraordinary prescription, the period of
possession preceding the classification of public dominion lands as patrimonial cannot be counted for the
purpose of computing prescription. But after the property has been become patrimonial, the period of
prescription begins to run in favor of the possessor. Once the requisite period has been completed, two legal
events ensue: (1) the patrimonial property is ipso jure converted into private land; and (2) the person in
possession for the periods prescribed under the Civil Code acquires ownership of the property by operation of
the Civil Code.

It is evident that once the possessor automatically becomes the owner of the converted patrimonial property,
the ideal next step is the registration of the property under the Torrens system. It should be remembered that
registration of property is not a mode of acquisition of ownership, but merely a mode of confirmation of
ownership.48

Looking back at the registration regime prior to the adoption of the Property Registration Decree in 1977, it is
apparent that the registration system then did not fully accommodate the acquisition of ownership of
patrimonial property under the Civil Code. What the system accommodated was the confirmation of imperfect
title brought about by the completion of a period of possession ordained under the Public Land Act (either 30
years following Rep. Act No. 1942, or since 12 June 1945 following P.D. No. 1073).

The Land Registration Act49 was noticeably silent on the requisites for alienable public lands acquired through
ordinary prescription under the Civil Code, though it arguably did not preclude such registration.50 Still, the gap
was lamentable, considering that the Civil Code, by itself, establishes ownership over the patrimonial property
of persons who have completed the prescriptive periods ordained therein. The gap was finally closed with the
adoption of the Property Registration Decree in 1977, with Section 14(2) thereof expressly authorizing original
registration in favor of persons who have acquired ownership over private lands by prescription under the
provisions of existing laws, that is, the Civil Code as of now.

V.

We synthesize the doctrines laid down in this case, as follows:

(1) In connection with Section 14(1) of the Property Registration Decree, Section 48(b) of the Public
Land Act recognizes and confirms that "those who by themselves or through their predecessors in
interest have been in open, continuous, exclusive, and notorious possession and occupation of
alienable and disposable lands of the public domain, under a bona fide claim of acquisition of
ownership, since June 12, 1945" have acquired ownership of, and registrable title to, such lands based
on the length and quality of their possession.

(a) Since Section 48(b) merely requires possession since 12 June 1945 and does not require
that the lands should have been alienable and disposable during the entire period of
possession, the possessor is entitled to secure judicial confirmation of his title thereto as soon
as it is declared alienable and disposable, subject to the timeframe imposed by Section 47 of
the Public Land Act.51

(b) The right to register granted under Section 48(b) of the Public Land Act is further confirmed
by Section 14(1) of the Property Registration Decree.

(2) In complying with Section 14(2) of the Property Registration Decree, consider that under the Civil
Code, prescription is recognized as a mode of acquiring ownership of patrimonial property. However,
 public domain lands become only patrimonial property not only with a declaration that these are
alienable or disposable. There must also be an express government manifestation that the property is
already patrimonial or no longer retained for public service or the development of national wealth, under
Article 422 of the Civil Code. And only when the property has become patrimonial can the prescriptive
period for the acquisition of property of the public dominion begin to run.

(a) Patrimonial property is private property of the government. The person acquires ownership
of patrimonial property by prescription under the Civil Code is entitled to secure registration
thereof under Section 14(2) of the Property Registration Decree.

(b) There are two kinds of prescription by which patrimonial property may be acquired, one
ordinary and other extraordinary. Under ordinary acquisitive prescription, a person acquires
ownership of a patrimonial property through possession for at least ten (10) years, in good faith
and with just title. Under extraordinary acquisitive prescription, a person’s uninterrupted adverse
possession of patrimonial property for at least thirty (30) years, regardless of good faith or just
title, ripens into ownership.

B.

We now apply the above-stated doctrines to the case at bar.

It is clear that the evidence of petitioners is insufficient to establish that Malabanan has acquired ownership
over the subject property under Section 48(b) of the Public Land Act. There is no substantive evidence to
establish that Malabanan or petitioners as his predecessors-in-interest have been in possession of the property
since 12 June 1945 or earlier. The earliest that petitioners can date back their possession, according to their
own evidence—the Tax Declarations they presented in particular—is to the year 1948. Thus, they cannot avail
themselves of registration under Section 14(1) of the Property Registration Decree.

Neither can petitioners properly invoke Section 14(2) as basis for registration. While the subject property was
declared as alienable or disposable in 1982, there is no competent evidence that is no longer intended for
public use service or for the development of the national evidence, conformably with Article 422 of the Civil
Code. The classification of the subject property as alienable and disposable land of the public domain does not
change its status as property of the public dominion under Article 420(2) of the Civil Code. Thus, it is
insusceptible to acquisition by prescription.

VI.

A final word. The Court is comfortable with the correctness of the legal doctrines established in this decision.
Nonetheless, discomfiture over the implications of today’s ruling cannot be discounted. For, every untitled
property that is occupied in the country will be affected by this ruling. The social implications cannot be
dismissed lightly, and the Court would be abdicating its social responsibility to the Filipino people if we simply
levied the law without comment.

The informal settlement of public lands, whether declared alienable or not, is a phenomenon tied to long-
standing habit and cultural acquiescence, and is common among the so-called "Third World" countries. This
paradigm powerfully evokes the disconnect between a legal system and the reality on the ground. The law so
far has been unable to bridge that gap. Alternative means of acquisition of these public domain lands, such as
through homestead or free patent, have

proven unattractive due to limitations imposed on the grantee in the encumbrance or alienation of said
properties.52Judicial confirmation of imperfect title has emerged as the most viable, if not the most attractive
means to regularize the informal settlement of alienable or disposable lands of the public domain, yet even that
system, as revealed in this decision, has considerable limits.
There are millions upon millions of Filipinos who have individually or exclusively held residential lands on which
they have lived and raised their families. Many more have tilled and made productive idle lands of the State
with their hands. They have been regarded for generation by their families and their communities as common
law owners. There is much to be said about the virtues of according them legitimate states. Yet such virtues
are not for the Court to translate into positive law, as the law itself considered such lands as property of the
public dominion. It could only be up to Congress to set forth a new phase of land reform to sensibly regularize
and formalize the settlement of such lands which in legal theory are lands of the public domain before the
problem becomes insoluble. This could be accomplished, to cite two examples, by liberalizing the standards for
judicial confirmation of imperfect title, or amending the Civil Code itself to ease the requisites for the conversion
of public dominion property into patrimonial.

One’s sense of security over land rights infuses into every aspect of well-being not only of that individual, but
also to the person’s family. Once that sense of security is deprived, life and livelihood are put on stasis. It is for
the political branches to bring welcome closure to the long pestering problem.

WHEREFORE, the Petition is DENIED. The Decision of the Court of Appeals dated 23 February 2007 and
Resolution dated 2 October 2007 are AFFIRMED. No pronouncement as to costs.

SO ORDERED.

G.R. No. L-630 November 15, 1947

ALEXANDER A. KRIVENKO, petitioner-appellant,

vs.
THE REGISTER OF DEEDS, CITY OF MANILA, respondent and appellee.

Gibbs, Gibbs, Chuidian and Quasha of petitioner-appellant.

First Assistant Solicitor General Reyes and Solicitor Carreon for respondent-appellee.
Marcelino Lontok appeared as amicus curies.

MORAN, C.J.:
Alenxander A. Kriventor alien, bought a residential lot from the Magdalena Estate, Inc., in December of 1941,
the registration of which was interrupted by the war. In May, 1945, he sought to accomplish said registration
but was denied by the register of deeds of Manila on the ground that, being an alien, he cannot acquire land in
this jurisdiction. Krivenko then brought the case to the fourth branch of the Court of First Instance of Manila by
means of a consulta, and that court rendered judgment sustaining the refusal of the register of deeds, from
which Krivenko appealed to this Court.

There is no dispute as to these facts. The real point in issue is whether or not an alien under our Constitution
may acquire residential land.

It is said that the decision of the case on the merits is unnecessary, there being a motion to withdraw the
appeal which should have been granted outright, and reference is made to the ruling laid down by this Court in
another case to the effect that a court should not pass upon a constitutional question if its judgment may be
made to rest upon other grounds. There is, we believe, a confusion of ideas in this reasoning. It cannot be
denied that the constitutional question is unavoidable if we choose to decide this case upon the merits. Our
judgment cannot to be made to rest upon other grounds if we have to render any judgment at all. And we
cannot avoid our judgment simply because we have to avoid a constitutional question. We cannot, for instance,
grant the motion withdrawing the appeal only because we wish to evade the constitutional; issue. Whether the
motion should be, or should not be, granted, is a question involving different considerations now to be stated.

According to Rule 52, section 4, of the Rules of Court, it is discretionary upon this Court to grant a withdrawal
of appeal after the briefs have been presented. At the time the motion for withdrawal was filed in this case, not
only had the briefs been prensented, but the case had already been voted and the majority decision was being
prepared. The motion for withdrawal stated no reason whatsoever, and the Solicitor General was agreeable to
it. While the motion was pending in this Court, came the new circular of the Department of Justice, instructing
all register of deeds to accept for registration all transfers of residential lots to aliens. The herein respondent-
appellee was naturally one of the registers of deeds to obey the new circular, as against his own stand in this
case which had been maintained by the trial court and firmly defended in this Court by the Solicitor General. If
we grant the withdrawal, the the result would be that petitioner-appellant Alexander A. Krivenko wins his case,
not by a decision of this Court, but by the decision or circular of the Department of Justice, issued while this
case was pending before this Court. Whether or not this is the reason why appellant seeks the withdrawal of
his appeal and why the Solicitor General readily agrees to that withdrawal, is now immaterial. What is material
and indeed very important, is whether or not we should allow interference with the regular and complete
exercise by this Court of its constitutional functions, and whether or not after having held long deliberations and
after having reached a clear and positive conviction as to what the constitutional mandate is, we may still allow
our conviction to be silenced, and the constitutional mandate to be ignored or misconceived, with all the
harmful consequences that might be brought upon the national patromony. For it is but natural that the new
circular be taken full advantage of by many, with the circumstance that perhaps the constitutional question may
never come up again before this court, because both vendors and vendees will have no interest but to uphold
the validity of their transactions, and very unlikely will the register of deeds venture to disobey the orders of
their superior. Thus, the possibility for this court to voice its conviction in a future case may be remote, with the
result that our indifference of today might signify a permanent offense to the Constitution.

All thse circumstances were thoroughly considered and weighted by this Court for a number of days and the
legal result of the last vote was a denial of the motion withdrawing the appeal. We are thus confronted, at this
stage of the proceedings, with our duty, the constitutional question becomes unavoidable. We shall then
proceed to decide that question.

Article XIII, section 1, of the Constitutional is as follows:

Article XIII. — Conservation and utilization of natural resources.

SECTION 1. All agricultural, timber, and mineral lands of the public domain, water, minerals, coal,
petroleum, and other mineral oils, all forces of potential energy, and other natural resources of the
Philippines belong to the State, and their disposition, exploitation, development, or utilization shall be
limited to citizens of the Philippines, or to corporations or associations at least sixty per centum of the
 capital of which is owned by such citizens, subject to any existing right, grant, lease, or concession at
the time of the inaguration of the Government established uunder this Constitution. Natural resources,
with the exception of public agricultural land, shall not be alienated, and no licence, concession, or
lease for the exploitation, development, or utilization of any of the natural resources shall be granted for
a period exceeding twenty-five years, renewable for another twenty-five years, except as to water rights
for irrigation, water supply, fisheries, or industrial uses other than the development of water "power" in
which cases beneficial use may be the measure and the limit of the grant.

The scope of this constitutional provision, according to its heading and its language, embraces all lands of any
kind of the public domain, its purpose being to establish a permanent and fundamental policy for the
conservation and utilization of all natural resources of the Nation. When, therefore, this provision, with
reference to lands of the public domain, makes mention of only agricultural, timber and mineral lands, it means
that all lands of the public domain are classified into said three groups, namely, agricultural, timber and
mineral. And this classification finds corroboration in the circumstance that at the time of the adoption of the
Constitution, that was the basic classification existing in the public laws and judicial decisions in the
Philippines, and the term "public agricultural lands" under said classification had then acquired a technical
meaning that was well-known to the members of the Constitutional Convention who were mostly members of
the legal profession.

As early as 1908, in the case of Mapa vs. Insular Government (10 Phil., 175, 182), this Court said that the
phrase "agricultural public lands" as defined in the Act of Congress of July 1, 1902, which phrase is also to be
found in several sections of the Public Land Act (No. 926), means "those public lands acquired from Spain
which are neither mineral for timber lands." This definition has been followed in long line of decisions of this
Court. (See Montano vs.Insular Government, 12 Phil., 593; Ibañez de Aldecoa vs. Insular Government, 13
Phil., 159; Ramos vs. Director of Lands, 39 Phil., 175; Jocson vs. Director of Forestry, 39 Phil., 560;
Ankron vs. Government of the Philippines, 40 Phil., 10.) And with respect to residential lands, it has been held
that since they are neither mineral nor timber lands, of necessity they must be classified as agricultural. In
Ibañez de Aldecoa vs. Insular Government (13 Phil., 159, 163), this Court said:

Hence, any parcel of land or building lot is susceptible of cultivation, and may be converted into a field,
and planted with all kinds of vegetation; for this reason, where land is not mining or forestal in its
nature, it must necessarily be included within the classification of agricultural land, not because it is
actually used for the purposes of agriculture, but because it was originally agricultural and may again
become so under other circumstances; besides, the Act of Congress contains only three classification,
and makes no special provision with respect to building lots or urban lands that have ceased to be
agricultural land.

In other words, the Court ruled that in determining whether a parcel of land is agricultural, the test is not only
whether it is actually agricultural, but also its susceptibility to cultivation for agricultural purposes. But whatever
the test might be, the fact remains that at the time the Constitution was adopted, lands of the public domain
were classified in our laws and jurisprudence into agricultural, mineral, and timber, and that the term "public
agricultural lands" was construed as referring to those lands that were not timber or mineral, and as including
residential lands. It may safely be presumed, therefore, that what the members of the Constitutional
Convention had in mind when they drafted the Constitution was this well-known classification and its technical
meaning then prevailing.

Certain expressions which appear in Constitutions, . . . are obviously technical; and where such words
have been in use prior to the adoption of a Constitution, it is presumed that its framers and the people
who ratified it have used such expressions in accordance with their technical meaning. (11 Am. Jur.,
sec. 66, p. 683.) AlsoCalder vs. Bull, 3 Dall. [U.S.], 386; 1 Law. ed., 648; Bronson vs. Syverson, 88
Wash., 264; 152 P., 1039.)

It is a fundamental rule that, in construing constitutions, terms employed therein shall be given the
meaning which had been put upon them, and which they possessed, at the time of the framing and
adoption of the instrument. If a word has acquired a fixed, technical meaning in legal and constitutional
 history, it will be presumed to have been employed in that sense in a written Constitution.
(McKinney vs. Barker, 180 Ky., 526; 203 S.W., 303; L.R.A., 1918 E, 581.)

Where words have been long used in a technical sense and have been judicially construed to have a
certain meaning, and have been adopted by the legislature as having a certain meaning prior to a
particular statute in which they are used, the rule of construction requires that the words used in such
statute should be construed according to the sense in which they have been so previously used,
although the sense may vary from strict literal meaning of the words. (II Sutherland, Statutory
Construction, p. 758.)

Therefore, the phrase "public agricultural lands" appearing in section 1 of Article XIII of the Constitution must
be construed as including residential lands, and this is in conformity with a legislative interpretation given after
the adoption of the Constitution. Well known is the rule that "where the Legislature has revised a statute after a
Constitution has been adopted, such a revision is to be regarded as a legislative construction that the statute
so revised conforms to the Constitution." (59 C.J., 1102.) Soon after the Constitution was adopted, the National
Assembly revised the Public Land Law and passed Commonwealth Act No. 141, and sections 58, 59 and 60
thereof permit the sale of residential lots to Filipino citizens or to associations or corporations controlled by
such citizens, which is equivalent to a solemn declaration that residential lots are considered as agricultural
lands, for, under the Constitution, only agricultural lands may be alienated.

It is true that in section 9 of said Commonwealth Act No. 141, "alienable or disposable public lands" which are
the same "public agriculture lands" under the Constitution, are classified into agricultural, residential,
commercial, industrial and for other puposes. This simply means that the term "public agricultural lands" has
both a broad and a particular meaning. Under its broad or general meaning, as used in the Constitution, it
embraces all lands that are neither timber nor mineral. This broad meaning is particularized in section 9 of
Commonwealth Act No. 141 which classifies "public agricultural lands" for purposes of alienation or disposition,
into lands that are stricly agricultural or actually devoted to cultivation for agricultural puposes; lands that are
residential; commercial; industrial; or lands for other purposes. The fact that these lands are made alienable or
disposable under Commonwealth Act No. 141, in favor of Filipino citizens, is a conclusive indication of their
character as public agricultural lands under said statute and under the Constitution.

It must be observed, in this connection that prior to the Constitution, under section 24 of Public Land Act No.
2874, aliens could acquire public agricultural lands used for industrial or residential puposes, but after the
Constitution and under section 23 of Commonwealth Act No. 141, the right of aliens to acquire such kind of
lands is completely stricken out, undoubtedly in pursuance of the constitutional limitation. And, again, prior to
the Constitution, under section 57 of Public Land Act No. 2874, land of the public domain suitable for residence
or industrial purposes could be sold or leased to aliens, but after the Constitution and under section 60 of
Commonwealth Act No. 141, such land may only be leased, but not sold, to aliens, and the lease granted shall
only be valid while the land is used for the purposes referred to. The exclusion of sale in the new Act is
undoubtedly in pursuance of the constitutional limitation, and this again is another legislative construction that
the term "public agricultural land" includes land for residence purposes.

Such legislative interpretation is also in harmony with the interpretation given by the Executive Department of
the Government. Way back in 1939, Secretary of Justice Jose Abad Santos, in answer to a query as to
"whether or not the phrase 'public agricultural lands' in section 1 of Article XII (now XIII) of the Constitution may
be interpreted to include residential, commercial, and industrial lands for purposes of their disposition,"
rendered the following short, sharp and crystal-clear opinion:

Section 1, Article XII (now XIII) of the Constitution classifies lands of the public domain in the
Philippines into agricultural, timber and mineral. This is the basic classification adopted since the
enactment of the Act of Congress of July 1, 1902, known as the Philippine Bill. At the time of the
adoption of the Constitution of the Philippines, the term 'agricultural public lands' and, therefore,
acquired a technical meaning in our public laws. The Supreme Court of the Philippines in the leading
case of Mapa vs. Insular Government, 10 Phil., 175, held that the phrase 'agricultural public lands'
means those public lands acquired from Spain which are neither timber nor mineral lands. This
definition has been followed by our Supreme Court in many subsequent case. . . .
 Residential commercial, or industrial lots forming part of the public domain must have to be included in
one or more of these classes. Clearly, they are neither timber nor mineral, of necessity, therefore, they
must be classified as agricultural.

Viewed from another angle, it has been held that in determining whether lands are agricultural or not,
the character of the land is the test (Odell vs. Durant, 62 N.W., 524; Lorch vs. Missoula Brick and Tile
Co., 123 p.25). In other words, it is the susceptibility of the land to cultivation for agricultural purposes
by ordinary farming methods which determines whether it is agricultural or not (State vs. Stewart, 190
p. 129).

Furthermore, as said by the Director of Lands, no reason is seen why a piece of land, which may be
sold to a person if he is to devote it to agricultural, cannot be sold to him if he intends to use it as a site
for his home.

This opinion is important not alone because it comes from a Secratary of Justice who later became the Chief
Justice of this Court, but also because it was rendered by a member of the cabinet of the late President
Quezon who actively participated in the drafting of the constitutional provision under consideration. (2 Aruego,
Framing of the Philippine Constitution, p. 598.) And the opinion of the Quezon administration was reiterated by
the Secretary of Justice under the Osmeña administration, and it was firmly maintained in this Court by the
Solicitor General of both administrations.

It is thus clear that the three great departments of the Government — judicial, legislative and executive — have
always maintained that lands of the public domain are classified into agricultural, mineral and timber, and that
agricultural lands include residential lots.

Under section 1 of Article XIII of the Constitution, "natural resources, with the exception of public agricultural
land, shall not be aliented," and with respect to public agricultural lands, their alienation is limited to Filipino
citizens. But this constitutional purpose conserving agricultural resources in the hands of Filipino citizens may
easily be defeated by the Filipino citizens themselves who may alienate their agricultural lands in favor of
aliens. It is partly to prevent this result that section 5 is included in Article XIII, and it reads as follows:

Sec. 5. Save in cases of hereditary succession, no private agricultural land will be transferred or
assigned except to individuals, corporations, or associations qualified to acquire or hold lands of the
public domain in the Philippines.

This constitutional provision closes the only remaining avenue through which agricultural resources may leak
into aliens' hands. It would certainly be futile to prohibit the alienation of public agricultural lands to aliens if,
after all, they may be freely so alienated upon their becoming private agricultural lands in the hands of Filipino
citizens. Undoubtedly, as above indicated, section 5 is intended to insure the policy of nationalization contained
in section 1. Both sections must, therefore, be read together for they have the same purpose and the same
subject matter. It must be noticed that the persons against whom the prohibition is directed in section 5 are the
very same persons who under section 1 are disqualified "to acquire or hold lands of the public domain in the
Philippines." And the subject matter of both sections is the same, namely, the non-transferability of "agricultural
land" to aliens. Since "agricultural land" under section 1 includes residential lots, the same technical meaning
should be attached to "agricultural land under section 5. It is a rule of statutory construction that "a word or
phrase repeated in a statute will bear the same meaning throughout the statute, unless a different intention
appears." (II Sutherland, Statutory Construction, p. 758.) The only difference between "agricultural land" under
section 5, is that the former is public and the latter private. But such difference refers to ownership and not to
the class of land. The lands are the same in both sections, and, for the conservation of the national patrimony,
what is important is the nature or class of the property regardless of whether it is owned by the State or by its
citizens.

Reference is made to an opinion rendered on September 19, 1941, by the Hon. Teofilo Sison, then Secretary
of Justice, to the effect that residential lands of the public domain may be considered as agricultural lands,
whereas residential lands of private ownership cannot be so considered. No reason whatsoever is given in the
opinion for such a distinction, and no valid reason can be adduced for such a discriminatory view, particularly
having in mind that the purpose of the constitutional provision is the conservation of the national patrimony,
and private residential lands are as much an integral part of the national patrimony as the residential lands of
the public domain. Specially is this so where, as indicated above, the prohibition as to the alienable of public
residential lots would become superflous if the same prohibition is not equally applied to private residential lots.
Indeed, the prohibition as to private residential lands will eventually become more important, for time will come
when, in view of the constant disposition of public lands in favor of private individuals, almost all, if not all, the
residential lands of the public domain shall have become private residential lands.

It is maintained that in the first draft of section 5, the words "no land of private ownership" were used and later
changed into "no agricultural land of private ownership," and lastly into "no private agricultural land" and from
these changes it is argued that the word "agricultural" introduced in the second and final drafts was intended to
limit the meaning of the word "land" to land actually used for agricultural purposes. The implication is not
accurate. The wording of the first draft was amended for no other purpose than to clarify concepts and avoid
uncertainties. The words "no land" of the first draft, unqualified by the word "agricultural," may be mistaken to
include timber and mineral lands, and since under section 1, this kind of lands can never be private, the
prohibition to transfer the same would be superfluous. Upon the other hand, section 5 had to be drafted in
harmony with section 1 to which it is supplementary, as above indicated. Inasmuch as under section 1, timber
and mineral lands can never be private, and the only lands that may become private are agricultural lands, the
words "no land of private ownership" of the first draft can have no other meaning than "private agricultural
land." And thus the change in the final draft is merely one of words in order to make its subject matter more
specific with a view to avoiding the possible confusion of ideas that could have arisen from the first draft.

If the term "private agricultural lands" is to be construed as not including residential lots or lands not strictly
agricultural, the result would be that "aliens may freely acquire and possess not only residential lots and
houses for themselves but entire subdivisions, and whole towns and cities," and that "they may validly buy and
hold in their names lands of any area for building homes, factories, industrial plants, fisheries, hatcheries,
schools, health and vacation resorts, markets, golf courses, playgrounds, airfields, and a host of other uses
and purposes that are not, in appellant's words, strictly agricultural." (Solicitor General's Brief, p. 6.) That this is
obnoxious to the conservative spirit of the Constitution is beyond question.

One of the fundamental principles underlying the provision of Article XIII of the Constitution and which was
embodied in the report of the Committee on Nationalization and Preservation of Lands and other Natural
Resources of the Constitutional Convention, is "that lands, minerals, forests, and other natural resources
constitute the exclusive heritage of the Filipino nation. They should, therefore, be preserved for those under the
sovereign authority of that nation and for their posterity." (2 Aruego, Framing of the Filipino Constitution, p.
595.) Delegate Ledesma, Chairman of the Committee on Agricultural Development of the Constitutional
Convention, in a speech delivered in connection with the national policy on agricultural lands, said: "The
exclusion of aliens from the privilege of acquiring public agricultural lands and of owning real estate is a
necessary part of the Public Land Laws of the Philippines to keep pace with the idea of preserving the
Philippines for the Filipinos." (Emphasis ours.) And, of the same tenor was the speech of Delegate Montilla
who said: "With the complete nationalization of our lands and natural resources it is to be understood that our
God-given birthright should be one hundred per cent in Filipino hands . . .. Lands and natural resources are
immovables and as such can be compared to the vital organs of a person's body, the lack of possession of
which may cause instant death or the shortening of life. If we do not completely antionalize these two of our
most important belongings, I am afraid that the time will come when we shall be sorry for the time we were
born. Our independence will be just a mockery, for what kind of independence are we going to have if a part of
our country is not in our hands but in those of foreigners?" (Emphasis ours.) Professor Aruego says that since
the opening days of the Constitutional Convention one of its fixed and dominating objectives was the
conservation and nationalization of the natural resources of the country. (2 Aruego, Framing of the Philippine
Constitution, p 592.) This is ratified by the members of the Constitutional Convention who are now members of
this Court, namely, Mr. Justice Perfecto, Mr. Justice Briones, and Mr. Justice Hontiveros. And, indeed, if under
Article XIV, section 8, of the Constitution, an alien may not even operate a small jitney for hire, it is certainly not
hard to understand that neither is he allowed to own a pieace of land.

This constitutional intent is made more patent and is strongly implemented by an act of the National Assembly
passed soon after the Constitution was approved. We are referring again to Commonwealth Act No. 141. Prior
to the Constitution, there were in the Public Land Act No. 2874 sections 120 and 121 which granted aliens the
right to acquire private only by way of reciprocity. Said section reads as follows:

SEC. 120. No land originally acquired in any manner under the provisions of this Act, nor any
permanent improvement on such land, shall be encumbered, alienated, or transferred, except to
persons, corporations, associations, or partnerships who may acquire lands of the public domain under
this Act; to corporations organized in the Philippine Islands authorized therefor by their charters, and,
upon express authorization by the Philippine Legislature, to citizens of countries the laws of which grant
to citizens of the Philippine Islands the same right to acquire, hold, lease, encumber, dispose of, or
alienate land, or permanent improvements thereon, or any interest therein, as to their own citizens, only
in the manner and to the extent specified in such laws, and while the same are in force but not
thereafter.

SEC. 121. No land originally acquired in any manner under the provisions of the former Public Land Act
or of any other Act, ordinance, royal order, royal decree, or any other provision of law formerly in force
in the Philippine Islands with regard to public lands, terrenos baldios y realengos, or lands of any other
denomination that were actually or presumptively of the public domain or by royal grant or in any other
form, nor any permanent improvement on such land, shall be encumbered, alienated, or conveyed,
except to persons, corporations, or associations who may acquire land of the public domain under this
Act; to corporate bodies organized in the Philippine Islands whose charters may authorize them to do
so, and, upon express authorization by the Philippine Legislature, to citizens of the countries the laws of
which grant to citizens of the Philippine Islands the same right to acquire, hold, lease, encumber,
dispose of, or alienate land or pemanent improvements thereon or any interest therein, as to their own
citizens, and only in the manner and to the extent specified in such laws, and while the same are in
force, but not thereafter: Provided, however, That this prohibition shall not be applicable to the
conveyance or acquisition by reason of hereditary succession duly acknowledged and legalized by
competent courts, nor to lands and improvements acquired or held for industrial or residence purposes,
while used for such purposes: Provided, further, That in the event of the ownership of the lands and
improvements mentioned in this section and in the last preceding section being transferred by judicial
decree to persons,corporations or associations not legally capacitated to acquire the same under the
provisions of this Act, such persons, corporations, or associations shall be obliged to alienate said lands
or improvements to others so capacitated within the precise period of five years, under the penalty of
such property reverting to the Government in the contrary case." (Public Land Act, No. 2874.)

It is to be observed that the pharase "no land" used in these section refers to all private lands, whether strictly
agricultural, residential or otherwise, there being practically no private land which had not been acquired by
any of the means provided in said two sections. Therefore, the prohibition contained in these two provisions
was, in effect, that no private land could be transferred to aliens except "upon express authorization by the
Philippine Legislature, to citizens of Philippine Islands the same right to acquire, hold, lease, encumber,
dispose of, or alienate land." In other words, aliens were granted the right to acquire private land merely by
way of reciprocity. Then came the Constitution and Commonwealth Act No. 141 was passed, sections 122 and
123 of which read as follows:

SEC. 122. No land originally acquired in any manner under the provisions of this Act, nor any
permanent improvement on such land, shall be encumbered, alienated, or transferred, except to
persons, corporations, associations, or partnerships who may acquire lands of the public domain under
this Act or to corporations organized in the Philippines authorized thereof by their charters.

SEC. 123. No land originally acquired in any manner under the provisions of any previous Act,
ordinance, royal order, royal decree, or any other provision of law formerly in force in the Philippines
with regard to public lands terrenos baldios y realengos, or lands of any other denomination that were
actually or presumptively of the public domain, or by royal grant or in any other form, nor any
permanent improvement on such land, shall be encumbered, alienated, or conveyed, except to
persons, corporations or associations who may acquire land of the public domain under this Act or to
corporate bodies organized in the Philippines whose charters authorize them to do so: Provided,
however, That this prohibition shall not be applicable to the conveyance or acquisition by reason of
 hereditary succession duly acknowledged and legalized by competent courts: Provided, further, That in
the event of the ownership of the lands and improvements mentioned in this section and in the last
preceding section being transferred by judicial decree to persons, corporations or associations not
legally capacitated to acquire the same under the provisions of this Act, such persons, corporations, or
associations shall be obliged to alienate said lands or improvements to others so capacitated within the
precise period of five years; otherwise, such property shall revert to the Government.

These two sections are almost literally the same as sections 120 and 121 of Act No. 2874, the only difference
being that in the new provisions, the right to reciprocity granted to aliens is completely stricken out. This,
undoubtedly, is to conform to the absolute policy contained in section 5 of Article XIII of the Constitution which,
in prohibiting the alienation of private agricultural lands to aliens, grants them no right of reciprocity. This
legislative construction carries exceptional weight, for prominent members of the National Assembly who
approved the new Act had been members of the Constitutional Convention.

It is said that the lot question does not come within the purview of sections 122 and 123 of Commonwealth Act
No. 141, there being no proof that the same had been acquired by one of the means provided in said
provisions. We are not, however, diciding the instant case under the provisions of the Public Land Act, which
have to refer to land that had been formerly of the public domain, otherwise their constitutionality may be
doubtful. We are deciding the instant case under section 5 of Article XIII of the Constitution which is more
comprehensive and more absolute in the sense that it prohibits the transfer to alien of any private agricultural
land including residential land whatever its origin might have been.

And, finally, on June 14, 1947, the Congress approved Republic Act No. 133 which allows mortgage of "private
real property" of any kind in favor of aliens but with a qualification consisting of expressly prohibiting aliens to
bid or take part in any sale of such real property as a consequence of the mortgage. This prohibition makes no
distinction between private lands that are strictly agricultural and private lands that are residental or
commercial. The prohibition embraces the sale of private lands of any kind in favor of aliens, which is again a
clear implementation and a legislative interpretation of the constitutional prohibition. Had the Congress been of
opinion that private residential lands may be sold to aliens under the Constitution, no legislative measure would
have been found necessary to authorize mortgage which would have been deemed also permissible under the
Constitution. But clearly it was the opinion of the Congress that such sale is forbidden by the Constitution and it
was such opinion that prompted the legislative measure intended to clarify that mortgage is not within the
constitutional prohibition.

It is well to note at this juncture that in the present case we have no choice. We are construing the Constitution
as it is and not as we may desire it to be. Perhaps the effect of our construction is to preclude aliens, admitted
freely into the Philippines from owning sites where they may build their homes. But if this is the solemn
mandate of the Constitution, we will not attempt to compromise it even in the name of amity or equity. We are
satisfied, however, that aliens are not completely excluded by the Constitution from the use of lands for
residential purposes. Since their residence in the Philippines is temporary, they may be granted temporary
rights such as a lease contract which is not forbidden by the Constitution. Should they desire to remain here
forever and share our fortunes and misfortunes, Filipino citizenship is not impossible to acquire.

For all the foregoing, we hold that under the Constitution aliens may not acquire private or public agricultural
lands, including residential lands, and, accordingly, judgment is affirmed, without costs.
Susi v. Razon, 48 PHIL. 424 1945

G.R. No. L-24066 December 9, 1925

VALENTIN SUSI, plaintiff-appellee,

vs.
ANGELA RAZON and THE DIRECTOR OF LANDS, defendants. THE DIRECTOR OF LANDS, appellant.

Acting Attorney-General Reyes for appellant.

Monico R. Mercado for appellee.

VILLA-REAL, J.:

This action was commenced in the Court of First Instance of Pampanga by a complaint filed by Valentin Susi
against Angela Razon and the Director of Lands, praying for judgment: (a) Declaring plaintiff the sole and
absolute owner of the parcel of land described in the second paragraph of the complaint; (b) annulling the sale
made by the Director of Lands in favor of Angela Razon, on the ground that the land is a private property; (c)
ordering the cancellation of the certificate of title issued to said Angela Razon; and (d) sentencing the latter to
pay plaintiff the sum of P500 as damages, with the costs.

For his answer to the complaint, the Director of Lands denied each and every allegation contained therein and,
as special defense, alleged that the land in question was a property of the Government of the United States
under the administration and control of the Philippine Islands before its sale to Angela Razon, which was made
in accordance with law.

After trial, whereat evidence was introduced by both parties, the Court of First Instance of Pampanga rendered
judgment declaring the plaintiff entitled to the possession of the land, annulling the sale made by the Director of
Lands in favor of Angela Razon, and ordering the cancellation of the certificate of title issued to her, with the
costs against Angela Razon. From this judgment the Director of Lands took this appeal, assigning thereto the
following errors, to wit: (1) The holding that the judgment rendered in a prior case between the plaintiff and
defendant Angela Razon on the parcel of land in question is controlling in this action; (2) the holding that
plaintiff is entitled to recover the possession of said parcel of land; the annulment of the sale made by the
Director of Lands to Angela Razon; and the ordering that the certificate of title issued by the register of deeds
of the Province of Pampanga to Angela Razon by virtue of said sale be cancelled; and (3) the denial of the
motion for new trial filed by the Director of Lands.

The evidence shows that on December 18, 1880, Nemesio Pinlac sold the land in question, then a fish pond,
tho Apolonio Garcia and Basilio Mendoza for the sum of P12, reserving the right to repurchase the same
(Exhibit B). After having been in possession thereof for about eight years, and the fish pond having been
destroyed, Apolonio Garcia and Basilio Mendoza, on September 5, 1899, sold it to Valentin Susi for the sum of
P12, reserving the right to repurchase it (Exhibit A). Before the execution of the deed of sale, Valentin Susi had
already paid its price and sown "bacawan" on said land, availing himself of the firewood gathered thereon, with
the proceeds of the sale of which he had paid the price of the property. The possession and occupation of the
land in question, first, by Apolonio Garcia and Basilio Mendoza, and then by Valentin Susi has been open,
continuous, adverse and public, without any interruption, except during the revolution, or disturbance, except
when Angela Razon, on September 13, 1913, commenced an action in the Court of First Instance of
Pampanga to recover the possession of said land (Exhibit C), wherein after considering the evidence
introduced at the trial, the court rendered judgment in favor of Valentin Susi and against Angela Razon,
dismissing the complaint (Exhibit E). Having failed in her attempt to obtain possession of the land in question
through the court, Angela Razon applied to the Director of Lands for the purchase thereof on August 15, 1914
(Exhibit C). Having learned of said application, Valentin Susi filed and opposition thereto on December 6, 1915,
asserting his possession of the land for twenty-five years (Exhibit P). After making the proper administrative
investigation, the Director of Lands overruled the opposition of Valentin Susi and sold the land to Angela
Razon. By virtue of said grant the register of deeds of Pampanga, on August 31, 1921, issued the proper
certificate of title to Angela Razon. Armed with said document, Angela Razon required Valentin Susi to vacate
the land in question, and as he refused to do so, she brought and action for forcible entry and detainer in the
justice of the peace court of Guagua, Pampanga, which was dismissed for lack of jurisdiction, the case being
one of title to real property (Exhibit F and M). Valentin Susi then brought this action.

With these facts in view, we shall proceed to consider the questions raised by the appellant in his assignments
of error.lawphi1.net

It clearly appears from the evidence that Valentin Susi has been in possession of the land in question openly,
continuously, adversely, and publicly, personally and through his predecessors, since the year 1880, that is, for
about forty-five years. While the judgment of the Court of First Instance of Pampanga against Angela Razon in
the forcible entry case does not affect the Director of Lands, yet it is controlling as to Angela Razon and rebuts
her claim that she had been in possession thereof. When on August 15, 1914, Angela Razon applied for the
purchase of said land, Valentin Susi had already been in possession thereof personally and through his
predecessors for thirty-four years. And if it is taken into account that Nemesio Pinlac had already made said
land a fish pond when he sold it on December 18, 1880, it can hardly be estimated when he began to possess
and occupy it, the period of time being so long that it is beyond the reach of memory. These being the facts,
the doctrine laid down by the Supreme Court of the United States in the case of Cariño vs. Government of the
Philippine Islands (212 U. S., 449 1), is applicable here. In favor of Valentin Susi, there is, moreover, the
presumption juris et de jure established in paragraph (b) of section 45 of Act No. 2874, amending Act No. 926,
that all the necessary requirements for a grant by the Government were complied with, for he has been in
actual and physical possession, personally and through his predecessors, of an agricultural land of the public
domain openly, continuously, exclusively and publicly since July 26, 1894, with a right to a certificate of title to
said land under the provisions of Chapter VIII of said Act. So that when Angela Razon applied for the grant in
her favor, Valentin Susi had already acquired, by operation of law, not only a right to a grant, but a grant of the
Government, for it is not necessary that certificate of title should be issued in order that said grant may be
sanctioned by the courts, an application therefore is sufficient, under the provisions of section 47 of Act No.
2874. If by a legal fiction, Valentin Susi had acquired the land in question by a grant of the State, it had already
ceased to be the public domain and had become private property, at least by presumption, of Valentin Susi,
beyond the control of the Director of Lands. Consequently, in selling the land in question to Angela Razon, the
Director of Lands disposed of a land over which he had no longer any title or control, and the sale thus made
was void and of no effect, and Angela Razon did not thereby acquire any right.

The Director of Lands contends that the land in question being of the public domain, the plaintiff-appellee
cannot maintain an action to recover possession thereof.lawphi1.net

If, as above stated, the land, the possession of which is in dispute, had already become, by operation of law,
private property of the plaintiff, there lacking only the judicial sanction of his title, Valentin Susi has the right to
bring an action to recover possession thereof and hold it.

For the foregoing, and no error having been found in the judgment appealed from, the same is hereby affirmed
in all its parts, without special pronouncement as to costs. So ordered.