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ComprehensiveAgrarianReformProgram
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TheComprehensiveAgrarianReformProgram,morecommonlyknownasCARP,isanagrarianreform
lawofthePhilippineswhoselegalbasisistheRepublicActNo.6657,[1]otherwiseknownasthe
ComprehensiveAgrarianReformLaw(CARL).[2]Itistheredistributionofprivateandpublicagricultural
landstohelpthebeneficiariessurviveassmallindependentfarmers,regardlessofthetenurial
arrangement.Itsgoalsaretoprovidelandownersequalityintermsofincomeandopportunities,empower
landownerbeneficiariestohaveanequitablelandownership,enhancetheagriculturalproductionand
productivity,provideemploymenttomoreagriculturalworkers,andputanendtoconflictsregardingland
ownership.

Contents
1 Background
2 Keycomponents
3 Development
3.1 LandreformunderAquinoadministration(19861992)
3.2 LandreformunderRamosadministration(19921998)
3.3 LandreformunderEstradaadministration(19982001)
4 ComprehensiveAgrarianReformProgramExtensionwithReforms(CARPER)
4.1 Beneficiaries
4.2 Significantprovisions
4.3 Achievements
5 Criticism
5.1 Unsuccessfulafter26years?
6 Seealso
7 References
8 Sources
9 Externallinks

Background
TheagrarianreformispartofthelonghistoryofattemptsoflandreforminthePhilippines.[3]Thelawwas
outlinedbyformerPresidentCorazonC.AquinothroughPresidentialProclamation131andExecutive
Order229onJune22,1987,[4]anditwasenactedbythe8thCongressofthePhilippinesandsignedby
AquinoonJune10,1988.In1998,whichwastheyearthatitwasscheduledtobecompleted,theCongress
enactedRepublicActNo.8532[5]toallocateadditionalfundsfortheprogramandextendingtheautomatic
appropriationofillgottenwealthrecoveredbythePresidentialCommissiononGoodGovernance(PCGG)
forCARPuntiltheyear2008.[6]

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Anamendatorylaw,CARPERortheComprehensiveAgrarianReformProgramExtensionwithReformsor
theRepublicAct.9700(http://www.dar.gov.ph/ra9700carpercomprehensiveagrarianreformprogramext
ension)waspassed.Itextendedthedeadlineofdistributingagriculturallandstothefarmersforan
additionalfiveyears.ThislawalsoamendsotherprovisionsandregulationsformerlystatedintheCARP.It
wassignedintolawonAugust7,2009andwassettobeaccomplishedbytheyear2014.[7]

Keycomponents
TheimplementationoftheComprehensiveAgrarianReformProgramreliesheavilyontheDepartmentof
AgrarianReform(DAR).Astheleadimplementingagency,theDARhastheresponsibilityincarrying
outtheprincipalaspectsoftheprogram,whichareLandTenureImprovement(LTI),ProgramBeneficiary
Development(PBD),andtheAgrarianJusticeDelivery(AJD).

TheLandTenureImprovementishighlyrecognizedasthemostintegralaspectoftheprogram.This
componentseekstosecurethetenurialstatusofthefarmersandfarmworkers.TheDARimplementsthis
componentthroughLandAcquisitionandDistribution(LAD)orNonlandTransferSchemes.

TheLandAcquisitionandDistributioninvolvestheredistributionofprivateandgovernmentownedland
tolandlessfarmersandfarmworkers.UnderSection6ofRA9700(Section16ofRA6657asamended)
regardingLandAcquisition,theDARidentifieslandsthatareeligiblefordistributionundertheCARPwith
accordancetothelaw,acquiresthelandbydeliveringanoticecontainingtheofferwithitscorresponding
valuetotheownershouldhechoosetoacceptthepayment.Followingtheacquisitionoflandsunder
Section11ofRA9700(Section26ofRA6657asamended)theDARdistributesthesetothequalified
beneficiaries,whothenpayforthelandthroughtheLandBankofthePhilippinesordirectlytotheirformer
owners.[8]

UndertheCARP,atotaltargetof10.3millionhectaresoflandwasprogrammedtobedistributedovera
spanoftenyears.Outofthetotalland,6.5millionhectaresofpublicdisposallandsandIntegratedSocial
ForestryareasaretobedistributedbytheDepartmentofEnvironmentandNaturalResources(DENR)
while3.8millionhectaresofprivateagriculturallandsaretobedistributedbytheDAR.FromJuly1987to
June1992,theDARwasabletodistribute1.77millionhectaresbenefiting.933millionbeneficiaries,while
theDENRhasdistributed1.88millionhectaresto.760millionfarmers.[9]

LeaseholdOperationsisthealternativenonlandtransferschemethatcoversalltenantedagriculturallands
inretainedareasandinyettobeacquiredordistributedlands.Underthiscomponent,theDARmediates
betweenthelandownersandtenantssothattheirsharetenancyarrangementcouldbeturnedintoa
leaseholdagreement,wherebythebeneficiarieswillpayafixedfeebasedontheirownhistorical
productionrecordsinsteadofpayingalargepercentageshareoftheirproducetothelandowner.[10]

TheProgramBeneficiariesDevelopmentisasupportservicedeliverycomponentofCARP.Itaimstoaid
theagrarianreformbeneficiariesbyprovidingthemnecessarysupportservicestomaketheirlandsmore
productive,andenablethemtoventureinincomegeneratinglivelihoodprojectsinaccordancetoSection
14ofRA9700(Section37ofRA6657asamended).[11]Underthesupportservicedeliveryprograms,the
PresidentialAgrarianReformCouncil(PARC)ensuresthatagrarianreformbeneficiariesareprovidedwith
supportservicessuchaslandsurveysandtilting,constructionofinfrastructures,marketingandproduction
assistance,creditandtraining.[8]

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AgrarianJusticeDeliveryprovidesagrarianlegalassistanceandoverseestheadjudicationofcases.Under
Section19ofRA97600(Section50ofRA6657asamended),theDARisherebyvestedwiththeprimary
jurisdictiontodetermineandadjudicateagrarianreformmattersandshallhaveexclusiveoriginal
jurisdictionoverallmattersinvolvingtheimplementationofagrarianreformexceptthosefallingunderthe
exclusivejurisdictionoftheDepartmentofAgriculture(DA)andtheDepartmentofEnvironmentand
NaturalResources(DENR).[2]

TheAgrarianLegalAssistanceisundertheBureauofLegalAssistance(BALA).TheBALAprovides
legalassistancetothebeneficiariesaffectedbyagrariancases,particularlythosewhoselegalrightsas
ARBsarechallengedbylandowners.

TheAdjudicationofCasesinvolvestheadjudicationofcasesbytheDepartmentofAgrarianReform
AdjudicationBoard(DARAB).Theadjudicationofcasesdealswithdisputespertainingtotenancy
relationsvaluationoflandsacquiredbyDARundercompulsoryacquisitionmoderightsandobligations
ofpersons,whethernaturalorjuridical,engagedinthemanagementcultivationanduseofallagricultural
landsejectmentanddispossessionoftenants/leaseholdersreviewofleaseholdrentalsandothersimilar
disputes.[10]

Development
Attheendofthe20thcentury,thepopulationofthePhilippinesincreasedrapidlyto75.32millionina
countryof297,410squarekilometers,withanaveragefamilysizeofsix,makingthePhilippinesknownfor
highpopulationdensity.Inadditiontothis,withapopulationgrowthof2.02peryear,thePhilippine
populationisexpectedtodoubleinthespanof25years.60percentofthePhilippinepopulationisrural,
andover12millionFilipinosmakealivingdirectlyfromagriculturalcultivation.Around9.5million
hectaresoflandacrossthePhilippinesareusedtoplanvariouscrops.Intermsoflandlessness,thenumber
oflandlessagriculturalfamiliesroseupfrom5millionto11.32millionfamilies.Outofthese11.32
families,4.6millionmakealivingfromlandstheydontown.0.70millionarerented,2millionare
laborers,while1.9millionarefarmingastenants.[9]

LandreformunderAquinoadministration(19861992)

DuringthestartofPresidentCorazonAquinostermin1986,theConstitutionalCommissionapproved
Section21underArticleII,whichstatesthatTheStateshallpromotecomprehensiveruraldevelopment
andagrarianreform.ThisledtothedraftingofCARP,whichtooktheCongressayeartomake.OnJune
10,1988,RepublicActNo.6657,alsoknownastheComprehensiveAgrarianReformLaw(CARL),was
passedtopromotesocialjusticeandindustrialization.Althoughitwasstillaproductofadherenceto
democraticprinciples,thislawwasfoundtohavemanyflaws.Becauseofmuchdissatisfactionwiththe
agrarianreformlaw,proposalsfrompeasantgroupsandnongovernmentorganizationsgrewinorderto
implementanalternativeprogramthatwasmoreadvantageoustothem.However,thisdidnotsucceed.

CARPrecognizesnotonlyfarmersbutalllandlessworkersasbeneficiarieswiththeconditionthatthey
cultivatetheland.ThetwomaindepartmentsinchargeofthisprogramareDepartmentofAgrarianReform
(DAR)andDepartmentofEnvironmentandNaturalResources(DENR).Asidefromthelanddistribution,
italsoprovidesthedeliveryofsupportservicesandsecuritytothefarmers.

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UndertheAquinoadministration,atotalof898,420landlesstenantsandfarmersbecamerecipientsofland
titlesandsupportservices.Evenwiththis,itcanbeconsideredunsuccessfulbecauseitonlyaccomplished
22.5percentoflanddistributionin6years.ThiswasduetothefactthatAquinoassigned4differentDAR
secretaries.ThemajorsetbackforCARPwasAquinosHaciendaLuisitasStockDistributionOption,
whichsaysthatshewasthefirstlandlordtoevadeCARPonagrandscale.

LandreformunderRamosadministration(19921998)

ThepoliciesonagrarianreformundertheRamosadministrationfocusedonacceleratingthedirectland
transferandnonlandtransferthroughadoptingmorerational,fairandinexpensivesettlements.It
encouragedlandownerstoinvestinruralbasedindustriesthatareconnectedtoagriculture.Itmadean
amendmenttoSection63ofCARLtoincreasethefundofthisprojectto100billion.Salariesofworkers
andmembersofDARboardwereincreasedtomotivatethemformoresuccessfulresultsaswell.

ThetargetlandtobegiventofarmerbeneficiariesunderthisAdministrationwas3.4millionhectares,4.7
millionor60percentofwhichwassuccessfullydistributed.Itachievedmorethandoubletheoutputofthe
Aquinoadministration.Itfocusedonlesscontentiouslandholdingsandacquisitionmodes,wherethey
chosetoworkwithautonomousNGOsandpeasantorganizations.However,controversieswere
unavoidableastheyencounteredlandlordsopenlyharassingpeasantswithgunsandforcingthemoutofthe
lands.

LandreformunderEstradaadministration(19982001)

Thisadministrationfocusedonfasttrackinglandacquisitionanddistribution.Itwantedtoreduce
uncertaintiesinlandmarketinruralplacestohelpfarmersefficiencyandprivateinvestmenttogrow.It
encouragedjointventures,corporative,contactfarmingandothermarketingarrangementstoprotectthe
statusofstakeholdersandpromotionofagriindustrialization.Theyalsoimprovedthedatabasesofthe
implementingagenciesofDARandDENRtofullyrecordandupdatethelandscovered.Estrada
highlightedthattherewasaneedtoconceptualizenewapproachesindoingthingstobuildanewsocial
agreementwhereproducers,governmentandprivatesectorsworkwithacommongoal.

Theprogramencounteredsomeproblemssuchasstronglandowners'resistance.Tenantsalsocomplained
onthelimitedamountoffundallocationprovidedbythegovernmentfortheproject.Itaimedtocomplete
7.8millionhectaresby2004.SincePresidentEstradalastedonly2.5yearsaspresident,thetotal
beneficiariesofCARPwasonly0.18millionor10percent.[12]

ComprehensiveAgrarianReformProgramExtensionwith
Reforms(CARPER)
ComprehensiveAgrarianReformProgramExtensionwithReforms,knownalsoasCALPERor
CARPer,(RepublicAct9700)[13]istheamendatorylawthatextendsagainthedeadlineofdistributing
agriculturallandstofarmersforfiveyears.ItalsoamendsotherprovisionsstatedinCARP.

InDecember2008,thebudgetforCARPexpiredandthereremained1.2millionhectaresofagricultural
landwaitingtobeacquiredanddistributedtofarmers.CARPERwassignedintolawonAugust7,2009by
GloriaMacapagalArroyoandwassettoexpireonJune30,2014.[14]Howevertheprogramofdistributing

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landstofarmerbeneficiariescontinuedevenafterJune2014.Section30ofRA9700orCARPERlaw
statesthatcasesonthematterwhicharestillpendingshallbeallowedtoproceedtoitsfinalityandbe
executedevenbeyondsuchdate.[15]

Beneficiaries

BeneficiariesofCARPERarelandlessfarmers,includingagriculturallessees,tenants,aswellasregular,
seasonalandotherfarmworkers.Inacertainlandholdingthequalifiedbeneficiarieswhoaretenantsand
regularfarmworkerswillreceive3hectareseachbeforedistributingtheremaininglandtotheother
qualifiedbeneficiarieslikeseasonalfarmworksandotherfarmworkers(Section22ofCARL).The
DepartmentofAgrarianReform(DAR)identifiesandscreenspotentialbeneficiariesandvalidatestheir
qualifications.Beneficiariesmustbeleast15yearsold,bearesidentofthebarangaywherethelandholding
islocated,andownnomorethan3hectaresofagriculturalland.[16]

TheCARPERlawhasbiasfororganizedfarmerstobebeneficiariesbecausetheCongressbelievesthatthe
successrateoforganizedfarmersishighandcanmaketheirawardedlandsproductive.

Significantprovisions

GenderSensitiveAgrarianReformSection1oftheCARPERlawstatesthat"TheStateshall
recognizeandenforce,consistentwithexistinglaws,therightsofruralwomentoownandcontrol
land,takingintoconsiderationthesubstantiveequalitybetweenmenandwomenasqualified
beneficiaries,toreceiveajustshareofthefruitsthereof,andtoberepresentedinadvisoryor
appropriatedecisionmakingbodies.Theserightsshallbeindependentoftheirmalerelativesandof
theircivilstatus."RuralwomenwillhavearepresentativeinthehighestpolicymakingbodyofDAR
thePresidentialAgrarianReformCouncil(PARC).
BudgetSection21amendingSection63forCARLstatethatthebudgetallocatedforthe5year
extensionis150Billionpesoswhichwillbesourcedfromthreefunds:AgrarianReformFund,
GeneralAppropriationsActs(GAA)andothersourcesoffundinglikeprivatizationofgovernment
asset,foreigndonors,etc.ThisbudgetisthelargestperyearinthehistoryofCARP.
CreationofaCongressionalOversightCommitteeSection26oftheCARPERlawcreateda
jointCongressionalOversightCommitteetooverseeandmonitortheimplementationoftheact,
whichwillbecomposedoftheChairpersonsoftheCommitteeonAgrarianReformofbothHouses
ofCongress,threeMembersoftheHouseofRepresentatives,andthreeMembersoftheSenateofthe
Philippines,tobedesignatedrespectivelybytheSpeakeroftheHouseofRepresentativesandthe
PresidentoftheSenateofthePhilippines.ThechairpersonsoftheCOCARaretheChairpersonsof
theCommitteesonAgrarianReformoftheHouseofRepresentativesandoftheSenateofthe
Philippines.ThetermoftheCOCARwillendsixmonthsaftertheexpirationoftheextendedperiod
offiveyears.TheCOCARisprovidedwithtwentyfivemillionpesos(P25,000,000.00)everyyear.
CARPERasaContinuingProgramSection30oftheCARPERlawmandatesthatanycase
and/orproceedinginvolvingtheimplementationoftheprovisionsofRepublicActNo.6657,as
amended,whichmayremainpendingonJune30,2014shallbeallowedtoproceedtoitsfinalityand
beexecutedevenbeyondsuchdate".Section30ofCARPERlawprovidesawaytolegallycontinue
theimplementationofpendingCARPcasesafterthe5yearextensionbyfillingtheinitiatoryprocess
ofCARP.
PoliciesinConvertingAgriculturalLandsSection73oftheCARPERlaw:"Anyconversionby
anylandownerofhis/heragriculturallandintoanynonagriculturalusewithintenttoavoidthe
applicationofthisActtohis/herlandholdingsandtodispossesshis/herbonafidetenantfarmers."
Failuretocomplywillresultinanimprisonmentof6to12yearsand/orapenaltyof200,000pesosto
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1millionpesos.TheCARPERlawprohibitsanyconversionofirrigatedandirrigablelandsand
mandatestheNationalIrrigationAdministrationtoidentifythese.CARPERlawalsostatesthatnon
implementationoftheconversionplanwillresulttoautomaticcoverageofthesubjectbyCARP.

Achievements

In2003,15yearsintotheprogram,studiesfundedbytheUnitedNationsDevelopmentProgramme
(UNDP),AsDB,FAO,EuropeanUnion(EU)andthePhilippineGovernment,hadshownthatpoverty
incidenceamongprogrambeneficiariesdeclinedfrom47.6to45.2percent,whileincreasingamongtheir
nonparticipatingcounterpartsfrom55.1to56.4percent.[17]

TheOfficialGazettereleasedanupdateontheaccomplishmentsinthefieldofagrarianreformasofJune
30,2014.

"AsofDecember31,2013,thegovernmenthasacquiredanddistributed6.9millionhectaresof
land,equivalentto88%ofthe

totallandsubjecttoCARP."Ofthisarea,theAquinoadministrationhasdistributedatotalof
751,514hectares,or45%ofthetotallandholdingstobedistributedtothefarmerbeneficiaries
leftunderthisadministration.Fromthis,DARhasdistributed412,782hectaresandDENRhas
alreadydistributed

338,732hectares.[16]

In20142016,DepartmentofAgrarianReformstillneedstoacquire771,795hectares(187,686hectares
in2014198,631hectaresin2015and385,478hectaresin2016).TheDepartmentofEnvironmentand
NationResourcesstillneedstoacquire134,857hectaresatotalof906,652hectares.

Criticism
Unsuccessfulafter26years?

WhileCARP(er)hashadsomesuccessinimprovingfoodsecurityandreducingpovertyoverallthrough
improvedfarmproductivityandincreasedfarmerincomestheprogramhasnotescapedcriticism.Major
implementationproblemsincluderesistancefromexistinglandowners(oftenobjectingtothe
undervaluationoftheirproperties),legislativegapsandfundingshortfalls.[17]

Therearealsoclaimsthattheprogramhasresultedinorworsenedviolentconflictsbetweenlandowners
andpoorfarmers.ByJune30,2014,theofficialprogramenddate,664farmershadbeenkilledinthename
oflandreform,accordingtoactivistgroupKilusangMagbubukidngPilipinas(PeasantMovementofthe
Philippines,orKMP).[18]568ofthesewerevictimsofextrajudicialkillings.InthefouryearsoftheNoynoy
Aquinoadministration,96farmerswerekilledasopposedtothe9thatwerekilledduringtheArroyo
administration.AccordingtoRafaelMariano,KMPchairman,"Farmersassertingtheirrightstotheland
weresubjectedtohumanrightsabuseswhilepeasantleaderswererenderedascriminals,incarceratedand,
worse,weremassacred".[18]

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CARPexpiredwhentheCongressdidnotapproveAquinosproposaltoextenditfortwomoreyears.The
DepartmentofAgrarianReform(DAR)hasprocessed494,945agrarianlawimplementationcasessincethe
startoftheprogram,whichtheKMPclaimsdemonstratetheprogram'sfailureandnegativeimpactonthe
livesoftenantsandfarmers.[18]

Seealso
LandreforminthePhilippines
DepartmentofAgrarianReform(Philippines)

References
1.RepublicActNo.6657(http://www.gov.ph/1988/06/10/republicactno6657/)of10June1988Anactinstituting
acomprehensiveagrarianreformprogramtopromotesocialjusticeandindustrialization,providingthe
mechanismforitsimplementation,andforotherpurposes.Retrieved5December2015.
2."WhatisCARPRA6657ComprehensiveAgrarianReformProgram".dar.gov.ph.Retrieved18October2015.
3.http://dirp3.pids.gov.ph/ris/wp/pidswp9113.pdf
4.PresidentialProclamation131andExecutiveOrder229(http://www.lawphil.net/executive/execord/eo1987/eo_229
_1987.html)
5.RepublicActNo.8532(http://www.lawphil.net/statutes/repacts/ra1998/ra_8532_1998.html)
6."EnglishDepartmentofAgrarianReform".dar.gov.ph.Retrieved18October2015.
7."CARPERRA9700ComprehensiveAgrarianReformProgramExtensionwithReforms".dar.gov.ph.
Retrieved18October2015.
8."R.A.9700".lawphil.net.Retrieved18October2015.
9.Leones&Moreno2012.
10.Navarro,ConradoS.,InstitutionalAspectsofPolicyImplementationandManagementofthePhilippine
ComprehensiveAgrarianReformProgramPaperpresentedatthePolicyDialogueonAgrarianReformIssuesin
RuralDevelopmentandPovertyAlleviation,Manila,Philippines,May30,2007.
11."TechnicalAdvisorySupportServices".dar.gov.ph.Retrieved18October2015.
12.RiYuEYap."ComprehensiveAgrarianReforminthePhilippines".comprehensiveagrarianreform.blogspot.com.
Retrieved18October2015.
13.http://www.lis.dar.gov.ph/home/document_view/3194
14."EnglishDepartmentofAgrarianReform".www.dar.gov.ph.Retrieved20150703.
15."RepublicActNo.9700|OfficialGazetteoftheRepublicofthePhilippines".Retrieved20150703.
16."QandA:TheComprehensiveAgrarianReformProgram|OfficialGazetteoftheRepublicofthePhilippines".
Retrieved20150703.
17.Guardian2003.
18.PhilippineStar2014.

Sources
Guardian,EdgarA.(2003)."Impactofaccesstolandonfoodsecurityandpoverty:thecaseofPhilippine
agrarianreform".LandReform,LandSettlementandCooperatives.FAO(2).Retrieved30November2015.

Leones,SusanaEvangelistaMoreno,FredeG.(2012)."AgrarianReformandPhilippinePoliticalDevelopment".
PoliticalEconomy:InternationalPoliticalEconomy:117.doi:10.2139/ssrn.1967844.

PhilippineStar,DingCervantes."After26years,CARPends".http://www.philstar.com.Retrieved18October
2015.Externallinkin|work=(help)

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Externallinks
CARPLawonTheLAWPhilProject(http://www.lawphil.net/statutes/repacts/ra2009/ra_9700_2009.
html)
http://kilusangmagbubukidngpilipinas.com/

Retrievedfrom"https://en.wikipedia.org/w/index.php?
title=Comprehensive_Agrarian_Reform_Program&oldid=764185886"

Categories: Philippinelaborlaw Landreform PresidencyofCorazonAquino

DepartmentofAgrarianReform(Philippines)

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