AGRARIAN REFORM IN THE PHILIPPINES Report of ..., Schemes and Mind Maps of Law

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PHILIPPINES THE IN REFORM AGRARIAN

1977 16-17, December Seminar, a of Report

C. D. Washington, Corporation, The Rand at

Hickey C. Gerald

and

Wilkinson L. John

,.

·'1'^ ~I·^. iii

PREFACE

Group Advisory Development Asia Southeast the 1975, April In in Philippines, Baguio, in seminar a held Society Asia the of (SEADAG) goals its and country that in program reform land the discuss to order productivity. agricultural increased and distribution land equitable of re- land Philippine the that assessment the with concluded seminar The of framework the within equity of cause the serving was program form the while stability, political was imperative One imperatives. two concluded further seminar The productivity. agricultural was other program's the conditions, two these satisfying was it because that, char- This character. in moderate and balanced both were priorities in questions pervasive the of one raising as seen was however, acter, and balanced a can extent what To reform: land Philippine discussing political, social, severe by marked nation a in succeed program moderate inequalities? economic and grant a through Corporation, The Rand 1977, 16-17, December On a held (AID)," Development International for Agency u.S. the from agrarian the review again to C. D. Washington, in seminar follow-on 1976-1977 during since especially Philippines, the in program reform in slowdown appreciable an indicated program the for statistics the and attendees seminar of list a for Appendix A (See performance. agenda.) were participants First, purpose. dual a had seminar second This the within especially redistribution, land of program the examine to ramifi- political and environmental, economic, social, its of context in slowdown the for responsible factors the determine to and cations, participants the analysis, this of basis the on Secondly, program. the in pursue might government Philippine the that options examine to were including donors, foreign that role the and program, reform agrarian the processes. implementing and planning future in play could AID,

I,.^ '.- vii successful A improve. and salvage to trying worth is effort transfer an be and poor rural' the benefit both would program reform agrarian agrarian Also, development. economic and social in element important development other of host a to related functionally too is reform fail. to it allow to AID and government the by supported being programs aid-contingent-on- employ an AID that suggestions were There to government Philippine the stimulate to order in policy performance program reform agrarian present the changing at effort serious a make suggested strategy related Another effectively. it implementing and current the in has it leverage any use to U.S. the for call would a exact to agreements bases military the of renewal for negotiations vigorously. reform agrarian pursue to promise government Philippine definitely should AID that felt participants most rate, any At of level government's Philippine the change to influence its exercise on centered also Discussion reform. agrarian to commitment practical present the of support modified through accomplished be might this how involve would This implementation. its improving at aimed program programs also and directly reform agrarian benefit would that programs economic of process the accelerating by indirectly contribute would that development. AID program, reform agrarian the to support direct of area the In management and technical solving in assistance technical provide could obtain also could AID titling. and registration land as such programs, process. tenure-conversion the in agencies private of assistance the reform agrarian the in participate to wish not do tenants reason one Since owners, amortizing as assume they burdens financial heavy the is program subsidize to designed fund rotating a establishing in assist might AID farmers' the improve to effort an of part be could This owners. new the farmers. the' helping of goal the with Nayons), (Samahang associations, govern- the However, "^ ..efforts.^.. group through problems their with cope something authority, real Samahang Nayons the give to have ment would now. have not do they which reform .agrarian assists which development economic for support AID agricultural of marketing improved of form the take could indirectly and roads rural improving to related projects through products

I

and irrigation with assistance lend could also AID transportation.

Philippine the assist could AID addition, In projects. electrification

re- through ratio people-land worsening the with coping in government

the and crops, tree of growing the including programs, forestation

would programs Such use. agricultural to grasslands of restoration

the in participate not do who poor, landless rural the benefit also

available. land productive by making more program, reform agrarian

r III • 1 PROGRAM REFORM AGRARIAN PRESENT THE OF FAILURE THE I. agrarian present the that seminar the of concensus the was It analysis and Discussion failing. is Philippines the in program reform reasons. interrelated five on focused little is there structured, presently is program the As o its attain will program current the that likelihood distribution equitable a more effecting (1) of goals agricultural in increase an stimulating (2) and land, of production. slow. extremely been has implementation Program o 15 than less of holdings with landlords small Many o program. the opposed have hectares reluctance a demonstrated have tenants cases, many In o program. the in participate to push to will political the lacks government The Marcos o conclusion. successful a to program the agrarian the of failure the that agreed participants seminar The Marcos' for consequences dire having was objectives its meet to reform badly were reforms economic and social when time a at Society" "New the population, rural expanding the of terms in viewed When needed. tne of deterioration the and poor, the of situation economic worsening reform agrarian the of performance poor the areas, many in environment society ~ral the for only not significance particular on takes program whole. a as nation Philippine the for but IMPLEMENTATION AND GOALS PROGRAM agrarian ,present the in changes drastic some are there Unless and equity of goals the that hope little is there program, reform realized. be ever can productivity of short far falls goal equity the structured. is program the As income. or land of redistribution significant any about bringing

I I,.

corn Only structure.) program's the of details for (See Appendix C

the of majority the leaving affected, been have lands rice and

of scope the outside estates) large the (including lands agricultural

in holdings to applied is program the since Further, program. the

and corn 914,000 total the of 520,000 only hectares, seven of excess

400,000 almost The title. receive to eligible are tenants rice

leasehold written given be to are become owners to ineligible tenants

currently arrangements tenancy informal often the replacing contracts,

as such poor, rural the of segments other addition, In existence. in

from all at benefit not do laborers, farm landless or unemployed the

reform. the

the both on burdens new places program reform agrarian the While

population, the of segments other tenants, eligible and landlords small

urban and estates, banana and coconut, sugar, large of owners as such

unaffected. totally remained have property

in those as such reform concerned, is productivity as far So

productivity. in increases enormous in resulted have and Taiwan Japan

reform agrarian Philippine the in occurred has this like Nothing

enjoyed have ownership to converted tenants those although program,

result the is however, increase, This income. their in increase some

the by consumption for available production of amount greater a of

production. total in increase an than rather family, peasant

has it that is program reform agrarian the of shortcoming Another

some B) Appendix (see 1977 late of As pace. slow very a at proceeded

for printed been had (CLTs) Transfer Land of Certificates 247,

CLTs the of 130,000 Only land. receive to eligible tenants 520,

been not have many great a but villages, to distributed been have

been has Compensation barriers. legal of because tenants the to given

who tenants, 41,614 for hectares 78,650 Land Bank on the by paid

Considering tenants. of number total the of percent 4.6 only represent

low a is this years, five for existence in been has program the that

of percentage the half about represents only it when especially figure

Vietnam South in program reform land Diem's Dinh Ngo by performance

unsuccessful. considered generally program 1950s--a late the during

and leaseholders called are who those by paid levels rent in difference that is occurred has fact in What sharecroppers. as designated those a as landlords some by used conveniently label become a has "leasehold" seeds, as benefits such tenant the danying for formula verbal and legal in traditional are which credit, consumption even and credit, production arrangement. sharecropping a the of benefactors the as protrayed often are tenants the Although the in participate to unwilling been have them of many reform, agrarian tenants some that noted participants seminar Significantly, program. program. the to opposition their for jailed been have ad- added the that is attitude tenants' the for reason primary The amortizing becoming of burdens financial and responsibilities ministrative con- uncertainty deeply-rooted already their heighten to serve only owners the in poor rural the among numbered are tenants Most future. the cerning tested being constantly is survival their times normal in and Philippines and pests, by crops their of invations conditions, weather capricious by threshold poverty the that fact the against viewed When prices. fluctuating

to reluctance the food, for just a month * pesos 400 is Philippines the in

(As understandable. more is gain uncertain an for situation a known risk dollar.) u.S. the to pesos 7.5 some were there 1977, December of were values land program, reform land the of phase earlier the In responsi- administrative an negotiations, landlord-tenant by determined led it_often because uncertainty his increased that tenant the for bility negotiations these In landlord. the and him between relations strained to More tenant. the did than influence more wielded invariably landlord the program, reform agrarian the of requirement the with conformity in recently, on values land determine to organized been have committees (barangay) barrio government. by fixed latter the prices, rice and levels production of basis the areas. rice-growing in committees barrio 12,000 were there 1977, December of As land regarding forms evaluation their submitted some 9000 had these, Of the previously While Reform. Agrarian of Department the to values

dollar. u.S. the to pesos 7~ approximately are There *

.' ,

pesos, 6000 around was land rice and corn of hectare per value average

price, support rice the in increase An 7000. is average present the

figure. latter this evaluating when account into taken be must however, amortizing an becomes who tenant the on burdens financial The government The uncertainty. his to adding great, relatively are owner new owners the to protection financial provide to effort made no has preliminary of granting the following immediately years the during the of success the for period critical most the (CLTs), titles land 1.8 of unit rice average-size the receiving tenant A reform. payments, amortization for obligations financial assumes new hectares around to amounting costs, other and dues, cooperative farm taxes, average the that given sum, staggering a is This annually. pesos 1300 province prosperous relatively the in farmer tenant a of income yearly

1976. in pesos some 1500 at estimated was Ecija Nueva of defaults of number great a been has burdens these of result One regard, this In payments. amortization on majority) a claim (some a had have to appear not do government the by credit of infusions provided has government the where situations In effect. beneficial in- and arbitrary an in so done usually has it new owners to credit stifle can credit of amounts insufficient as Just manner. efficient during program credit Masagana-99 the of study a effort, reform the the of indicative is region basin River Bicol the in 1973 and 1974 (See credit. of infusions excessive by done be can which damage this During program.) this on information additional for Appendix C an in farmers region's the on loans forced agents Masagana-99 period, established quotas credit exceed and meet to effort overenthusiastic farmers tenant were recipients loan the of Many government. the by found credit, available in increase the with who, sharecroppers and much effect, In landlords. the by raised being were rents their that the from transfer income an became actually supplied credit the of in- rent co~tinued of fear Further, landlords. the to government to improvements capital any from making tenants the inhibited creases pro- increased by offset not were rents higher the that so land, their defaults loan of number high a to led situation This levels. duction the to guidelines issue to government the prompted turn, in which,

that require loans whose Development Bank, Asian the of requirement a

not are however, covenants, Such addressed. be problem tenure the

loans. World Bank the of part

(NIA) Administration Irrigation National 1977,the October In

the on research undertake to Unit Research Science Social the asked

them of some why determine to order in systems irrigation communal

while loans, and fees irrigation pay to able i.e., successful, were

de- of rates high the about concerned was NIA The not. were others

of payment require loans World Bank the because on payments fault

staff, NIA the research this concerning discussion the In interest.

status. tenure about anything mentioned never enough, interestingly

and concerned were they which with issue an be to appear not did This

for support government effective of lack general the of indicative is

effort. reform land the

tenants among fear growing the by engendered also is Uncertainty

develop- rural with concerned become more has government the as that,

reform agrarian on default they if years, five past the during ment

mili- the where fact, in cases, are There jailed. be can they loans

jail with population the threatened and villages into gone have tary

tenants the of uncertainty the to had added This default. they if

out take and farms their in invest to fear may they that point the to

lack of pattern the continuing thus development, irrigation for loans

management. water of

rice of varieties high-yield of introduction the Furthermore,

direct, than rather water, and land between links the that shown has

and when IR-5 period, 1968-1969 the During insidious. quite be can

province, Ecija Nueva in introduced were rice" "miric1e of types other

production commercial of possibilities the saw immediately landlords the

invest- the increase to them stimulated This varieties. new these of

interested been only had they previously where land, their on ments

between owned who landlords the of Some rents. land harvesting in

investing began available, capital some had who and hectares, 20 and 30

to water of sources reliable provide to order in pumps deep-water in

two-year a over crops five as many as realizing production, increase

for a method with them provided also investment This period.

who farmers, adjacent of production rice the of part appropriating deep- for percent) 10 (usually yield their of percentage a exchanged water. irrigation pump the retain to opted have tenants many risks, of set this Given land- their with had they that relationship patron-client traditional which in partnership of kind a to amounted this cases many In lords. landlord his from assistance of kind some on count could tenant the he example, for failed, crops tenant's the If needed. was it when tenant the For landlord. his from loan consumption a obtain could the of member one As relationship. a such in reliability was there are indiscriminately reform land push who "People out, pointed seminar however, participants, Some money." man's poor a with gambling longer no relationship tenant/landlord this that view the supported decade a than more introduced was leasehold since least at exists, support. any ending for excuse an landlord the giving ago, that apparent increasingly become has it years few past the In agrarian the supporting in interest lost has government Marcos the in participate to reluctant tenants more even made has This reform. are Who tenants some of self-image the affected has and program the by conducted and AID by funded survey recent a In owners. amortizing of region basin River Bicol the in Unit Research Science Social the of Department the by classified farmers of percent 50 Luzon, southern as themselves perceived actually landowners as (DAR) Reform Agrarian status their eyes own their In lessees. most, at or, tenants share the of desire the cases many In program. the by altered been not had forcing of effect curious the had has status that maintain to tenants con- to program reform the in participate to want do who landowners landlords the characterize might One relationship. patronal the tinue class." upper "downtrodden the as situation a such in caught been has program reform agrarian the of implementation far, Thus new 41,614 t~e of most where Luzon, Central in successful most region this Since located. are B) Appendix (see owners amortizing to used be cannot success its however, characteristics, special has Philippines. the of regions other in performance potential the measure Central in leadership peasant of pattern a been has there Historically,

I I

Luzon Central in owners amortizing of number high relatively The tenants many circumstances, favorable under that, reminder a as serves province Bu1acan in study A land. owning in interested still are are they if program reform the support will tenants that revealed Unfortunately, status. economic their improve will it that assured that. do to failed has program current the agrarian the if that seminar the during was made observation The patron-client old the of a breakdown in result did program reform tenant the leaving of result beneficial the have might it relationship out, pointed was It organizations. community in participate to free of declaration the through about came reform agrarian that however, participate to free being peasant the of idea the that and law martial The law. martial with incompatible is decisionmaking community in While situation. this illustrate associations farmer Samahang Nayon function they program, reform agrarian the of part as formed were they government of but decisionmaking, democratic of instruments as not control. by efforts for except that, fact the obscure not should This considerable been always has there Luzon Central in leaders indigenous govern- the by especially peasants, Filipino the organizing in difficulty an requires peasants the among effort organization successful A ment. government- The them. to important is that concern common some to appeal an such have not do they because succeed not do organizations sponsored councils barangay The peasants. the to meaningful be to fail and appeal, no have that goals predefined have they since this, of good example a are that knows everyone almost Furthermore, peasants. ordinary the to appeal do that Organizations farces. be to tend counci1s'e1ections thebarangay tend villagers, the galvanize that issues on focus they because emerge dangerous. and subverse as military the and government the by regarded be to noncommunist, explicitly is which Movement, Left Christian the example, For Movement the that result the with threat, a as government the by viewed is course. collision a on are government the and around organized be must also peasants the among Organizations in level same economic the of those i.e., units," "socioeconomic segments poor and rich the from farmers of mixture A society. village

viable. from becoming organization any prevent will society the of women, for forefront the in place a have must organizations new Also, of time the since roles leadership important played have women since movement. Hukbalahap the the by fostered is planning level grass-roots genuine If U.S. and Philippine the both then and AID, government Philippine such view should they how of issue the face to have will governments It militancy. increasing demonstrate they as organizations emerging in infiltration Communist about apprehension American that hoped is local legitimate any to opposition to lead not will Philippines the protest.

WILL POLITICAL OF LACK

program reform agrarian the reason important most the Probably will political no is there because is languishing is Philippines the in to implemented program the see to government Marcos the of part the on at to related directly be to appears This conclusion. successful a by attempt program--the the of goal political unstated, one, least them give to promising by peasantry the of support the win to Marcos however, 1972, in promulgated was reform agrarian the When land. with not dealing be would he that fact the appreciate to failed Marcos land- small of number sizable a with but landholders, large of group a lords. larg~ century, nineteenth the since that, previously noted was It large the As diminishing. been had hectares) 1000 (over landholdings were they areas rural the in power traditional their lost landlords entrepreneurs, economic-political of group emerging newly a by replaced a develop to land of than weapons of ownership on more relied who when law, martial of advent the until sway held They base. political 27 Decree Presidential Promulgating eliminated. forcibly were they tenants, the of support the enlisting to view a with C) Appendix (see would program new his that danger clear a was there that found Marcos most that aware seem not did he and landlords, small the alienate declaring after until landowners small of hands the in were holdings law. martial

I 13 the by possible made is power their since please, they as do to free per- to Marcos for need The groups. interest of variety a of assent "strong supposed the mitigates power in remain to act balancing form. a a been have well may there although reform., land on influence man" completion. to it push to able been have might he when period

PROGRAM FAILING THE OF IMPLICATIONS

the Marcos made President speeches, national his of one During success for gauge only the is program reform. land "The that declaration New no is there fails, reform land If New.Society. the of failure or the when time a at failing is program reform agrarian The Society." badly are Society" "New the in promised reforms economic and social- conditions economic and Social needed. benefit undoubtedly would program reform agrarian successful A lot Their land. the to access with those especially poor, rural the percent 30 a experiencing laborers farm landless with worsened, has the time, same the At years. 25 past the in wages real of decline annually, percent 2.5 to 2 of rate the at growing is population rural an ago, years five began reform. agrarian the since that, means which areas. rural the in formed been have families new million one estimated enjoy Philippines the although that, fact the added be should this To areas, fishing good to access including resources, natural considerable one is which Bangladesh, of that to equal is standard nutritional the lowest. world's the of of stock a for bidding is population rural increasing The according 1968 since expand to ceased fact, in has, that land rice Although Institute. Research Rice International the from data to this rate, annual percent 2.5 to 2 a at increasing are yields rice tending is growth population so basis, hectare per on a is increase con- is degradation Environmental growth. productivity outstrip to on effects the but lands, agricultural in decline the to tributing in- an by disguised being probably are trend this of productivity suggests situation This land. irrigated of amount the in crease from drop will farms of size average the 1980s, early the by that, farms of number total the with hectare, 1 to hectares 1.8 current the

I 14 the Given million. 1.5 to million one current the from increasing this ownership, of transfer of levels significant any of absence and rents increasing by characterized situation a to lead to promises inadequate of consequences The security. tenure in reduction steady a off- rural, find and growth population of rate the reduce to efforts hill- on (located land marginal and landless the for employment farm future. near the in even staggering is workers sides) is account into taken be must which pressure dynamic second A environment, physical rural the of aspects certain of destruction the The main pressure. population growing of problem the compounds which indiscriminate of combination the been has deterioration this of cause nonexistent almost with along land, the of logging-off and burning-off reduction a to led have conditions These efforts. management watershed capacity soil's the in reduction a and waters subsurface available in problems siltation in resulted has This water. retain and absorb to of study recent A proporations. difficult assuming already are which the that shows example, for Bicol, the in dam hydroelectric Binga the the reduced effectively have area the in siltation of levels high the once addition, In years. some 15 by dam this of life operational dominant, becomes grass (imperata) cogon deforestation, by stripped is land coast. Ilocos the and Island Cebu of all almost over occurred has a~ while that, are estimates Forestry of Bureau nationwide Current refores- year, per hectares 80,000 some on encroaching is grass cogon Deforestation annually. hectares 18,000 some reclaiming only is tation under, being surface Philippines' the of percent 40 almost to led has agriculture. to useless virtually is that percent today--40 grass cogon in lead increasingly will and led, have pressures dynamic These available The migration. rural-urban of rates high to future, the land- truly are migrating those whether indicate clearly not does data a least at that was participants the of consensus the although less, not (lands lands marginal from workers were migrants the of portion recog- government, Philippine The cultivation). wet-rice to suited its ceased has migration, this by represented valve safety the nizing of primarily composed is which sector, urban new this of harassment fulfilling is it that recognition growing a is There migrants. rural