Republic of the Philippines

SUPREME COURT
Manila
EN BANC
G.R. No. 135385 December 6, 2000
ISAGANI CRUZ !" CESAR EUROPA, petitioners,
vs.
SECRETAR# O$ EN%IRONMENT AND NATURA& RESOURCES, SECRETAR# O$ 'UDGET AND MANAGEMENT !"
C(AIRMAN !" COMMISSIONERS O$ T(E NATIONA& COMMISSION ON INDIGENOUS PEOP&ES, respondents.
(ON. )UAN M .$&A%IER, (ON. PONCIANO 'ENNAGEN, 'A#ANI ASCARRAGA, EDTAMI MANSA#ANGAN, 'ASI&IO *ANDAG,
E%E&#N DUNUAN, #AOM TUGAS, A&$REMO CARPIANO, &I'ERATO A. GA'IN, MATERNIDAD M. CO&AS, NARCISA M.
DA&UPINES, 'AI +IRAM,CONNIE SATURNO, 'AE M&OMO,'EATRIZ T. A'ASA&A, DATU 'A&ITUNGTUNG,ANTONIO D.
&UMANDONG, DATU MANTUMU+A* TEO$ISTO SA'ASA&ES, DATU EDUAARDO 'ANDA, DATU )OE& UNAD, DATU RAMON
'A#AAN, TIMUA# )OSE ANO#, TIMUA# MACARIO D. SA&ACAO, TIMUA# ED*IN '. ENDING, DATU SA(AMPONG MA&ANA*
%I, DATU 'EN PENDAO CA'IGON, 'AI NANAPNA#,&IZA SA*A#, 'A# INA# DA#A,ME&INDA S. RE#MUNDO, 'AI
TINANG(AGA (E&INITA T. PANGAN, DATU MA+APU+A* ADO&INO &. SA*A#, DATU MAUDA#A*,CRISPEN SA*A#, %IC+#
MA+A#, &OURDES D. AMOS, GI&'ERT P. (OGGANG, TERESA GASPAR, MANUE& S. ONA&AN, MIA GRACE &. GIRON,
ROSEMARIE G. PE, 'ENITO CARINO, )OSEP( )UDE CARANTES, &#NETTE CARANTES,%I%A&, &ANG&E# SEGUNDO, SATUR
S. 'UGNA#, CAR&ING DOMU&OT, ANDRES MENDIOGRIN, &EOPO&DO A'UGAN, %IRGI&IO CA#ETANO, CONC(ITA G.
DESCAGA, &E%# ESTE%ES, ODETTE G. ESTE%EZ, RODO&$O C. AGUI&AR, MAURO %A&ONES, PEPE (. ATONG, O$E&IA T.
DA%I, PER$ECTO '. GUINOSAO, *A&TER N. TIMO&, MANUE& T. SE&EN, OSCAR DA&UN(A#, RICO O. SU&ATAN, RA$$#
MA&INDA, A&$REDO A'I&&ANOS, )ESSIE ANDI&A', MIR&ANDO (. MANG+U&INTAS, SAMIE SATURNO, ROMEO A.
&INDA(A#, ROE& S. MANSANG,CAGAN, PA-UITO S. &IESES, $I&IPE G. SA*A#, (ERMINIA S. SA*A#, )U&IUS S. SA*A#,
&EONARDA SA*A#, )IMM# UG#U', SA&%ADOR TIONGSON, %ENANCIO APANG, MADION MA&ID, SU+IM MA&ID, NENENG
MA&ID, MANG+ATADONG AUGUSTO DIANO, )OSEP(INE M. A&'ESO, MORENO MA&ID, MARIO MANGCA&, $E&A#
DIAMI&ING, SA&OME P. SARZA, $E&IPE P. 'AGON, SAMM# SA&NUNGAN, ANTONIO D. EM'A, NORMA MAPANSAGONOS,
ROMEO SA&IGA, SR., )ERSON P. GERADA, RENATO T. 'AGON, )R., SARING MASA&ONG, SO&EDAD M. GERARDA,
E&IZA'ET( &. MENDI, MORANTE S. TI*AN, DANI&O M. MA&UDAO, MINORS MARICE& MA&ID, re.re/e!0e" b1 2er 302er
CORNE&IO MA&ID, MARCE&INO M. &ADRA, re.re/e!0e" b1 2er 302er MONICO D. &ADRA, )ENN#&#N MA&ID, re.re/e!0e" b1
2er 302er TON# MA&ID, ARIE& M. E%ANGE&ISTA, re.re/e!0e" b1 2er mo02er &INA# 'A&'UENA, ED*ARD M. EMU#, SR.,
SUSAN 'O&ANIO, OND, PU&A 'ATO '4&AAN TRI'A& $ARMER4S ASSOCIATION, INTER,PEOP&E4S E5C(ANGE, INC. !"
GREEN $ORUM,*ESTERN %ISA#AS, intervenors.
COMMISSION ON (UMAN RIG(TS, intervenor.
I+A&A(AN INDIGENOUS PEOP&E !" (ARI'ON $OUNDATION $OR T(E CONSER%ATION O$ NATURA& RESOURCES,
INC., intervenor.
R E S O L U T I O N
PER CURIAM:
Petitiones Isa!ani Cu" an# Cesa Euopa bou!ht this suit fo pohibition an# $an#a$us as citi"ens an# ta%pa&es' assailin! the
constitutionalit& of cetain povisions of Republic Act No. ()*+ ,R.A. ()*+-' othe.ise /no.n as the In#i!enous Peoples Ri!hts Act of
+00* ,IPRA-' an# its I$ple$entin! Rules an# Re!ulations ,I$ple$entin! Rules-.
In its esolution of Septe$be 10' +00(' the Cout e2uie# espon#ents to co$$ent.
+
In co$pliance' espon#ents Chaipeson an#
Co$$issiones of the National Co$$ission on In#i!enous Peoples ,NCIP-' the !oven$ent a!enc& ceate# un#e the IPRA to
i$ple$ent its povisions' file# on Octobe +)' +00( thei Co$$ent to the Petition' in .hich the& #efen# the constitutionalit& of the IPRA
an# pa& that the petition be #is$isse# fo lac/ of $eit.
On Octobe +0' +00(' espon#ents Seceta& of the 3epat$ent of Envion$ent an# Natual Resouces ,3ENR- an# Seceta& of the
3epat$ent of Bu#!et an# Mana!e$ent ,3BM- file# thou!h the Solicito 4eneal a consoli#ate# Co$$ent. The Solicito 4eneal is of
the vie. that the IPRA is patl& unconstitutional on the !oun# that it !ants o.neship ove natual esouces to in#i!enous peoples
an# pa&s that the petition be !ante# in pat.
On Nove$be +5' +00(' a !oup of intevenos' co$pose# of Sen. 6uan 7lavie' one of the authos of the IPRA' M. Ponciano
Benna!en' a $e$be of the +0(8 Constitutional Co$$ission' an# the lea#es an# $e$bes of ++1 !oups of in#i!enous peoples
,7lavie' et. al-' file# thei Motion fo Leave to Intevene. The& 9oin the NCIP in #efen#in! the constitutionalit& of IPRA an# pa&in! fo
the #is$issal of the petition.
On Mach 11' +000' the Co$$ission on :u$an Ri!hts ,C:R- li/e.ise file# a Motion to Intevene an#;o to Appea as A$icus Cuiae.
The C:R assets that IPRA is an e%pession of the pinciple of paens patiae an# that the State has the esponsibilit& to potect an#
!uaantee the i!hts of those .ho ae at a seious #isa#vanta!e li/e in#i!enous peoples. 7o this eason it pa&s that the petition be
#is$isse#.
On Mach 1)' +000' anothe !oup' co$pose# of the I/alahan In#i!enous People an# the :aibon 7oun#ation fo the Consevation of
Natual Resouces' Inc. ,:aibon' et al.-' file# a $otion to Intevene .ith attache# Co$$ent<in<Intevention. The& a!ee .ith the NCIP
an# 7lavie' et al. that IPRA is consistent .ith the Constitution an# pa& that the petition fo pohibition an# $an#a$us be #is$isse#.
The $otions fo intevention of the afoesai# !oups an# o!ani"ations .ee !ante#.
Oal a!u$ents .ee hea# on Apil +)' +000. Theeafte' the paties an# intevenos file# thei espective $e$oan#a in .hich the&
eiteate the a!u$ents a##uce# in thei ealie plea#in!s an# #uin! the heain!.
Petitiones assail the constitutionalit& of the follo.in! povisions of the IPRA an# its I$ple$entin! Rules on the !oun# that the& a$ount
to an unla.ful #epivation of the State=s o.neship ove lan#s of the public #o$ain as .ell as $ineals an# othe natual esouces
theein' in violation of the e!alian #octine e$bo#ie# in Section 1' Aticle >II of the Constitution?
@,+- Section ),a- .hich #efines the e%tent an# covea!e of ancestal #o$ains' an# Section ),b- .hich' in tun' #efines ancestal lan#sA
@,1- Section B' in elation to section ),a-' .hich povi#es that ancestal #o$ains inclu#in! inalienable public lan#s' bo#ies of .ate'
$ineal an# othe esouces foun# .ithin ancestal #o$ains ae pivate but co$$unit& popet& of the in#i!enous peoplesA
@,)- Section 8 in elation to section ),a- an# ),b- .hich #efines the co$position of ancestal #o$ains an# ancestal lan#sA
@,C- Section * .hich eco!ni"es an# enu$eates the i!hts of the in#i!enous peoples ove the ancestal #o$ainsA
,B- Section ( .hich eco!ni"es an# enu$eates the i!hts of the in#i!enous peoples ove the ancestal lan#sA
@,8- Section B* .hich povi#es fo pioit& i!hts of the in#i!enous peoples in the havestin!' e%taction' #evelop$ent o e%ploation of
$ineals an# othe natual esouces .ithin the aeas clai$e# to be thei ancestal #o$ains' an# the i!ht to ente into a!ee$ents .ith
nonin#i!enous peoples fo the #evelop$ent an# utili"ation of natual esouces theein fo a peio# not e%cee#in! 1B &eas' ene.able
fo not $oe than 1B &easA an#
@,*- Section B( .hich !ives the in#i!enous peoples the esponsibilit& to $aintain' #evelop' potect an# conseve the ancestal #o$ains
an# potions theeof .hich ae foun# to be necessa& fo citical .ateshe#s' $an!oves' .il#life sanctuaies' .il#eness' potecte#
aeas' foest cove o efoestation.@
1
Petitiones also content that' b& povi#in! fo an all<enco$passin! #efinition of @ancestal #o$ains@ an# @ancestal lan#s@ .hich $i!ht
even inclu#e pivate lan#s foun# .ithin sai# aeas' Sections ),a- an# ),b- violate the i!hts of pivate lan#o.nes.
)
In a##ition' petitiones 2uestion the povisions of the IPRA #efinin! the po.es an# 9uis#iction of the NCIP an# $a/in! custo$a& la.
applicable to the settle$ent of #isputes involvin! ancestal #o$ains an# ancestal lan#s on the !oun# that these povisions violate the
#ue pocess clause of the Constitution.
C
These povisions ae?
@,+- sections B+ to B) an# B0 .hich #etail the pocess of #elineation an# eco!nition of ancestal #o$ains an# .hich vest on
the NCIP the sole authoit& to #elineate ancestal #o$ains an# ancestal lan#sA
@,1- Section B1DiE .hich povi#es that upon cetification b& the NCIP that a paticula aea is an ancestal #o$ain an# upon
notification to the follo.in! officials' na$el&' the Seceta& of Envion$ent an# Natual Resouces' Seceta& of Inteio an#
Local 4oven$ents' Seceta& of 6ustice an# Co$$issione of the National 3evelop$ent Copoation' the 9uis#iction of sai#
officials ove sai# aea te$inatesA
@,)- Section 8) .hich povi#es the custo$a& la.' ta#itions an# pactices of in#i!enous peoples shall be applie# fist .ith
espect to popet& i!hts' clai$s of o.neship' hee#ita& succession an# settle$ent of lan# #isputes' an# that an& #oubt o
a$bi!uit& in the intepetation theeof shall be esolve# in favo of the in#i!enous peoplesA
@,C- Section 8B .hich states that custo$a& la.s an# pactices shall be use# to esolve #isputes involvin! in#i!enous peoplesA
an#
@,B- Section 88 .hich vests on the NCIP the 9uis#iction ove all clai$s an# #isputes involvin! i!hts of the in#i!enous
peoples.@
B
7inall&' petitiones assail the vali#it& of Rule FII' Pat II' Section + of the NCIP A#$inistative O#e No. +' seies of +00(' .hich
povi#es that @the a#$inistative elationship of the NCIP to the Office of the Pesi#ent is chaactei"e# as a lateal but autono$ous
elationship fo puposes of polic& an# po!a$ coo#ination.@ The& conten# that sai# Rule infin!es upon the Pesi#ent=s po.e of
contol ove e%ecutive #epat$ents un#e Section +*' Aticle FII of the Constitution.
8
Petitiones pa& fo the follo.in!?
@,+- A #eclaation that Sections )' B' 8' *' (' B1DIE' B*' B(' B0' 8)' 8B an# 88 an# othe elate# povisions of R.A. ()*+ ae
unconstitutional an# invali#A
@,1- The issuance of a .it of pohibition #iectin! the Chaipeson an# Co$$issiones of the NCIP to cease an# #esist fo$
i$ple$entin! the assaile# povisions of R.A. ()*+ an# its I$ple$entin! RulesA
@,)- The issuance of a .it of pohibition #iectin! the Seceta& of the 3epat$ent of Envion$ent an# Natual Resouces to
cease an# #esist fo$ i$ple$entin! 3epat$ent of Envion$ent an# Natual Resouces Cicula No. 1' seies of +00(A
@,C- The issuance of a .it of pohibition #iectin! the Seceta& of Bu#!et an# Mana!e$ent to cease an# #esist fo$
#isbusin! public fun#s fo the i$ple$entation of the assaile# povisions of R.A. ()*+A an#
@,B- The issuance of a .it of $an#a$us co$$an#in! the Seceta& of Envion$ent an# Natual Resouces to co$pl& .ith his
#ut& of ca&in! out the State=s constitutional $an#ate to contol an# supevise the e%ploation' #evelop$ent' utili"ation an#
consevation of Philippine natual esouces.@
*
Afte #ue #elibeation on the petition' the $e$bes of the Cout vote# as follo.s?
Seven ,*- vote# to #is$iss the petition. 6ustice Gapunan file# an opinion' .hich the Chief 6ustice an# 6ustices Bellosillo' Huisu$bin!'
an# Santia!o 9oin' sustainin! the vali#it& of the challen!e# povisions of R.A. ()*+. 6ustice Puno also file# a sepaate opinion
sustainin! all challen!e# povisions of the la. .ith the e%ception of Section +' Pat II' Rule III of NCIP A#$inistative O#e No. +'
seies of +00(' the Rules an# Re!ulations I$ple$entin! the IPRA' an# Section B* of the IPRA .hich he conten#s shoul# be
intepete# as #ealin! .ith the la!e<scale e%ploitation of natual esouces an# shoul# be ea# in con9unction .ith Section 1' Aticle >II
of the +0(* Constitution. On the othe han#' 6ustice Men#o"a vote# to #is$iss the petition solel& on the !oun# that it #oes not aise a
9usticiable contoves& an# petitiones #o not have stan#in! to 2uestion the constitutionalit& of R.A. ()*+.
Seven ,*- othe $e$bes of the Cout vote# to !ant the petition. 6ustice Pan!aniban file# a sepaate opinion e%pessin! the vie. that
Sections ) ,a-,b-' B' 8' * ,a-,b-' (' an# elate# povisions of R.A. ()*+ ae unconstitutional. :e eseves 9u#!$ent on the
constitutionalit& of Sections B(' B0' 8B' an# 88 of the la.' .hich he believes $ust a.ait the filin! of specific cases b& those .hose
i!hts $a& have been violate# b& the IPRA. 6ustice Fitu! also file# a sepaate opinion e%pessin! the vie. that Sections ),a-' *' an# B*
of R.A. ()*+ ae unconstitutional. 6ustices Melo' Pa#o' Buena' 4on"a!a<Re&es' an# 3e Leon 9oin in the sepaate opinions of 6ustices
Pan!aniban an# Fitu!.
As the votes .ee e2uall& #ivi#e# ,* to *- an# the necessa& $a9oit& .as not obtaine#' the case .as e#elibeate# upon. :o.eve'
afte e#elibeation' the votin! e$aine# the sa$e. Acco#in!l&' pusuant to Rule B8' Section * of the Rules of Civil Poce#ue' the
petition is 3ISMISSE3.
Attache# heeto an# $a#e inte!al pats theeof ae the sepaate opinions of 6ustices Puno' Fitu!' Gapunan' Men#o"a' an#
Pan!aniban.
SO OR3ERE3.