Local Governments Digests

Mabelle O.
Nebres | Local Governments Case Digests

Alvarez v. Guingona
Facts: HB 8817 entitle! "#n #ct Converting t$e M%nici&alit' o(
)antiago into an *n!e&en!ent Com&onent Cit' to be +no,n as t$e
Cit' o( )antiago" ,as (ile! in t$e Ho- s%bse.%entl' &asse! b' t$e
Ho- an! transmitte! to t$e )enate. # co%nter&art o( HB 8817 )B
1/01 ,as (ile! in t$e )enate an! ,as &asse! as ,ell. 2$e enrolle!
bill ,as s%bmitte! to an! signe! b' t$e C$ie( 34ec%tive as -#
77/5. 6$en a &lebiscite on t$e #ct ,as $el! on 7%l' 11 1880 a
great ma9orit' o( t$e registere! voters o( )antiago vote! in (avor o(
t$e conversion o( )antiago into a cit'.
*ss%e: Constit%tionalit' o( -# 77/5. )C: :3) &etition !enie!
&res%m&tion o( constit%tionalit' no clear an! %ne.%ivocal breac$
o( t$e Consti.
1. 6ON *nternal -even%e #llotments ;*-#s< m%st be incl%!e!
in !etermining t$e average ann%al income (or &%r&oses o(
conversion.:3)
For a m%nici&alit' to be converte! into an in!e&en!ent
com&onent cit' its average ann%al income (or t$e last
t,o consec%tive 'ears ;at t$at time base! on 1881
constant &rices< m%st be at least /5M. =etitioners
conten! t$at t$e *-#s m%st be !e!%cte! (rom t$e
m%nici&alit'>s income beca%se t$e' are not income b%t
trans(ers an!?or b%!getar' ai! (rom t$e NG an! t$at
t$e' (l%ct%ate !e&en!ing on !i((erent (actors.
2$e co%rt in its !isc%ssion o( ,$at an LG@ is sai! t$at:
a. it is a &olitical s%b!ivision o( t$e )tate ,$ic$ is
constit%te! b' la, an! &ossesse! o( s%bstantial
control over its o,n a((airs.
b. *t is an intra sovereign s%b!ivision o( one sovereign
nation b%t not inten!e! $o,ever to be an im&eri%m
in im&erio
c. *t is a%tonomo%s in t$e sense t$at it is given more
&o,ers a%t$orit' res&onsibilities an! reso%rces.
)ince t$e LG@ is given broa!ene! &o,ers an! increase!
res&onsibilities it no, o&erates on a m%c$ ,i!er scale.
More e4tensive o&erations in t%rn entail more
e4&enses. 2$e vesting o( !%t' res&onsibilit' an!
acco%ntabilit' in ever' LG@ is accom&anie! ,it$ a
&rovision (or reasonabl' a!e.%ate reso%rces to
!isc$arge its &o,ers an! e((ectivel' carr' o%t its
(%nctions.
#vailment o( s%c$ reso%rces is e((ect%ate! t$ro%g$ t$e
vesting in ever' LG %nit o( ;1< t$e rig$t to create an!
broa!en its o,n so%rce o( reven%eA ;/< t$e rig$t to be
allocate! a 9%st s$are in national ta4es s%c$ s$are being
in t$e (orm o( internal reven%e allotments ;*-#s<A an! ;1<
t$e rig$t to be given its e.%itable s$are in t$e &rocee!s
o( t$e %tiliBation an! !evelo&ment o( t$e national
,ealt$ i( an' ,it$in its territorial bo%n!aries.
2$e co%rt $el! t$at t$e *-#s ,ere &ro&erl' incl%!e!
beca%se t$e' are items o( income an! (orm &art o( t$e
gross accretion o( t$e (%n!s o( t$e LG@. 2$e *-#s
reg%larl' an! a%tomaticall' accr%e to t$e local treas%r'
,it$o%t nee! o( an' (%rt$er action on t$e &art o( t$e LG
%nit. 2$e' t$%s constit%te income ,$ic$ t$e LG can
invariabl' rel' %&on as t$e so%rce o( m%c$ nee!e!
(%n!s.
LGC )ec 0C5 ;c<: "t$e average ann%al income s$all
incl%!e t$e income accr%ing to t$e general (%n!
e4cl%sive o( s&ecial (%n!s trans(ers an! nonDrec%rring
income."
DOF Or!er 1CD81: #NN@#L *NCOM3: reven%es an!
recei&ts realiBe! b' &rovinces cities an! m%nici&alities
(rom reg%lar so%rces o( t$e Local General F%n! incl%!ing
t$e internal reven%e allotment an! ot$er s$ares
&rovi!e! (or in )ecs /80 /85 an! /81 o( t$e Co!e b%t
e4cl%sive o( nonDrec%rring recei&ts s%c$ as ot$er
national ai!s grants (inancial assistance loan &rocee!s
sales o( (i4e! assets an! similar ot$ers.
1. 6ON consi!ering t$at t$e )enate &asse! )B 1/01 its o,n
version o( HB 8817 -# 77/5 can be sai! to $ave originate!
in t$e Ho-. :3)
Bills o( local a&&lication are re.%ire! to originate
e4cl%sivel' in t$e Ho-. =etitioners conten! t$at since a
bill o( t$e same im&ort ,as &asse! in t$e )enate it
cannot be sai! to $ave originate! in t$e Ho-.
)%c$ is %ntenable beca%se it cannot be !enie! t$at t$e
HB ,as (ile! (irst ;18 #&r 1881<. 2$e )B ,as (ile! 18
Ma'. 2$e HB ,as a&&rove! on t$ir! rea!ing 17 Dec an!
,as transmitte! to t$e )enate /8 7an 1880.
2$e (iling in t$e )enate o( a s%bstit%te bill in antici&ation
o( its recei&t o( t$e bill (rom t$e Ho%se !oes not
1
Mabelle O. Nebres | Local Governments Case Digests
contravene t$e constit%tional re.%irement t$at a bill o(
local a&&lication s$o%l! originate in t$e Ho%se o(
-e&resentatives (or as long as t$e )enate !oes not act
t$ere%&on %ntil it receives t$e Ho%se bill.
2$e (iling in t$e )enate o( a s%bstit%te bill in antici&ation
o( its recei&t o( t$e bill (rom t$e Ho- !oes not
contravene t$e constit%tional re.%irement t$at a bill o(
local a&&lication s$o%l! originate in t$e Ho- (or as long
as t$e )enate !oes not act t$ere%&on %ntil it receives
t$e Ho%se bill.
2olentino v. )oF: E,$at t$e Constit%tion sim&l' means is
t$at t$e initiative (or (iling reven%e tari(( or ta4 bills
bills a%t$oriBing an increase o( t$e &%blic !ebt &rivate
bills an! bills o( local a&&lication m%st come (rom t$e
Ho- on t$e t$eor' t$at electe! as t$e' are (rom t$e
!istricts t$e members o( t$e Ho%se can be e4&ecte! to
be more sensitive to t$e local nee!s an! &roblems. On
t$e ot$er $an! t$e senators ,$o are electe! at large
are e4&ecte! to a&&roac$ t$e same &roblems (rom t$e
national &ers&ective. Bot$ vie,s are t$ereb' ma!e to
bear on t$e enactment o( s%c$ la,s. Nor !oes t$e
Constit%tion &ro$ibit t$e (iling in t$e )enate o( a
s%bstit%te bill in antici&ation o( its recei&t o( t$e bill (rom
t$e Ho%se so long as action b' t$e )enate as a bo!' is
,it$$el! &en!ing recei&t o( t$e Ho%se bill.F
Basco v. PAGCOR
Facts: =#GCO- ,as create! %n!er =D 18G8 to enable t$e
Government to reg%late an! centraliBe all games o( c$ance
a%t$oriBe! b' e4isting (ranc$ise or &ermitte! b' la,. 2o attain its
ob9ectives ;centraliBe an! integrate t$e rig$t an! a%t$orit' to
o&erate an! con!%ct games o( c$ance generate a!!itional reven%e
to (%n! in(rastr%ct%re an! socioDcivic &ro9ect e4&an! to%rism
minimiBe evils &revalent in con!%ct an! o&eration o( gambling
cl%bs< =#GCO- is given territorial 9%ris!iction all over t$e
=$ili&&ines. @n!er its C$arterHs re&ealing cla%se all la,s !ecrees
e4ec%tive or!ers r%les an! reg%lations inconsistent t$ere,it$ are
accor!ingl' re&eale! amen!e! or mo!i(ie!.
*ss%es:
1. 6ON =D 18G8 constit%tes a ,aiver o( t$e rig$t o( t$e Cit' o(
Manila to im&ose ta4es an! legal (ees. NO
2$e Cit' o( Manila being a mere Municipal
corporation $as no inherent right to impose taxes.
2$%s "t$e C$arter or stat%te m%st &lainl' s$o, an intent
to con(er t$at &o,er or t$e m%nici&alit' cannot ass%me
it." *ts "&o,er to ta4" t$ere(ore m%st al,a's 'iel! to a
legislative act ,$ic$ is s%&erior $aving been &asse!
%&on b' t$e state itsel( ,$ic$ $as t$e "in$erent &o,er to
ta4"
2$e C$arter o( t$e Cit' o( Manila is s%b9ect to control b'
Congress. *t s$o%l! be stresse! t$at "m%nici&al
cor&orations are mere creat%res o( Congress" ,$ic$ $as
t$e &o,er to "create an! abolis$ m%nici&al cor&orations"
!%e to its "general legislative &o,ers." Congress
t$ere(ore $as t$e &o,er o( control over LGs. #n! i(
Congress can grant t$e Cit' o( Manila t$e &o,er to ta4
certain matters it can also &rovi!e (or e4em&tions or
even ta+e bac+ t$e &o,er.
2$e Cit' o( ManilaHs &o,er to im&ose license (ees on
gambling $as long been revo+e!. #s earl' as 187C t$e
&o,er o( LGs to reg%late gambling t$r% t$e grant o(
"(ranc$ise licenses or &ermits" ,as ,it$!ra,n b' =D
771 an! ,as veste! e4cl%sivel' on t$e NG. Onl' t$e NG
$as t$e &o,er to iss%e "licenses or &ermits" (or t$e
o&eration o( gambling. Necessaril' t$e &o,er to
!eman! or collect license (ees ,$ic$ is a conse.%ence o(
t$e iss%ance o( "licenses or &ermits" is no longer veste!
in t$e Cit' o( Manila.
LGs $ave no &o,er to ta4 instr%mentalities o( t$e NG.
=#GCO- is a government o,ne! or controlle!
cor&oration ,it$ an original c$arter =D 18G8. #ll o( its
s$ares o( stoc+s are o,ne! b' t$e NG. *n a!!ition to its
cor&orate &o,ers ;)ec. 1 2itle ** =D 18G8< it also
e4ercises reg%lator' &o,ers. =#GCO- $as a !%al role to
o&erate an! to reg%late gambling casinos. 2$e latter role
is governmental ,$ic$ &laces it in t$e categor' o( an
agenc' or instr%mentalit' o( t$e Government. Being an
instr%mentalit' o( t$e Government =#GCO- s$o%l! be
an! act%all' is e4em&t (rom local ta4es. Ot$er,ise its
o&eration mig$t be b%r!ene! im&e!e! or s%b9ecte! to
control b' a mere LG.
2$e states $ave no &o,er b' ta4ation or ot$er,ise to
retar! im&e!e b%r!en or in an' manner control t$e
o&eration o( constit%tional la,s enacte! b' Congress to
/
carr' into e4ec%tion t$e &o,ers veste! in t$e (e!eral
government.DDI "s%&remac'" o( t$e NG over LGs.
Holmes: absence o( &o,er on t$e &art o( t$e )tates to
to%c$ in t$at ,a' ;ta4ation< at least t$e
instr%mentalities o( t$e @nite! )tates
mere creat%res o( t$e )tate can !e(eat National &olicies
t$r% e4termination o( ,$at local a%t$orities ma'
&erceive to be %n!esirable activities or enter&rise %sing
t$e &o,er to ta4 as "a tool (or reg%lation"
1. 6ON t$e Local #%tonom' Cla%se o( t$e Constit%tion ,ill be
violate! b' =D 18G8. NO.
#rt 4 )ec C Consti: 3ac$ LG %nit s$all $ave t$e &o,er to
create its o,n so%rce o( reven%e an! to lev' ta4es (ees
an! ot$er c$arges s%b9ect to s%c$ g%i!elines an!
limitation as t$e congress ma' &rovi!e consistent ,it$
t$e basic &olic' on local a%tonom'. )%c$ ta4es (ees an!
c$arges s$all accr%e e4cl%sivel' to t$e LG.
&o,er o( LG to "im&ose ta4es an! (ees" is s%b9ect to
"limitations" ,$ic$ Congress ma' &rovi!e b' la,. )ince
=D 18G8 remains an "o&erative" la, %ntil "amen!e!
re&eale! or revo+e!" ;)ec. 1 #rt. JK*** 1887
Constit%tion< its "e4em&tion cla%se" remains as an
e4ce&tion to t$e e4ercise o( t$e &o,er o( LGs to im&ose
ta4es an! (ees. *t cannot t$ere(ore be violative b%t
rat$er is consistent ,it$ t$e &rinci&le o( local a%tonom'.
&rinci&le o( local a%tonom' %n!er t$e 1887 Constit%tion
sim&l' means "!ecentraliBation." *t !oes not ma+e LGs
sovereign ,it$in t$e state or an "im&eri%m in im&erio."
LG: political subivision o! a nation or state "hich
is constitute b# la" an has substantial control
o! local a!!airs. *n a %nitar' s'stem o( government
s%c$ as t$e government %n!er t$e =$ili&&ine
Constit%tion LGs can onl' be an intra sovereign
s%b!ivision o( one sovereign nation it cannot be an
im&eri%m in im&erio. LG in s%c$ a s'stem can onl' mean
a meas%re o( !ecentraliBation o( t$e (%nction o(
government.
$ilas v. Cit# o! Manila
Facts: Kilas 2rigas an! ag%a!o are cre!itors o( Manila as it e4iste!
be(ore t$e cession o( t$e =$ili&&ine *slan!s ;=*< to t$e @) b' t$e
treat' o( =aris. #ccor!ing to t$em %n!er its &resent c$arter (rom
t$e Government o( t$e =* is t$e same 9%ristic &erson an! liable
%&on t$e obligations o( t$e ol! cit'. =* )C: !i((erent entit'.
*ss%e: 6ON not,it$stan!ing t$e cession o( t$e =* to t$e @) (ollo,e!
b' a reincor&oration o( t$e cit' &resent m%nici&alit' liable (or
obligations o( ol! cit'. :3)
2$e cit' as no, incor&orate! $as s%ccee!e! to all o( t$e
&ro&ert' rig$ts o( t$e ol! cit' an! to t$e rig$t to en(orce
all its ca%ses o( action. 2$ere is i!entit' o( &%r&ose
bet,een )& an! #m c$arters an! s%bstantial i!entit' o(
m%nici&al &o,ers area an! in$abitants.
#rg%ment against liabilit': a'%ntamiento o( Manila ,as a
cor&oration entit' create! b' t$e )& government . ,$en
t$e sovereignt' o( )& cease! m%nici&alit' cease! as
,ell.DDI analog' to !octrine o( &rinci&al an! agent !eat$
o( &rinci&alL!eat$ o( agent
D%al C$aracter o( M%nici&al Cor&orations:
1. Governmental: e4ercises b' !elegation a &art o( t$e
sovereignt' o( t$e state
/. =rivate?B%siness: mere legal entit' or 9%ristic &erson.
)tan!s (or t$e comm%nit' in t$e a!ministration o(
local a((airs ,$oll' be'on! t$e s&$ere o( t$e &%blic
&%r&oses (or ,$ic$ its governmental &o,ers are
con(erre!
*n vie, o( t$e !%al c$aracter o( m%nici&al cor&orations
t$ere is no &%blic reason (or &res%ming t$eir total
!issol%tion as a mere conse.%ence o( militar'
occ%&ation or territorial cession.
McMinle'>s instr%ction: relin.%is$ment or cessionN
cannot in an' res&ect im&air t$e &ro&ert' or rig$ts ,$ic$
b' la, belong to t$e &eace(%l &ossession o( &ro&ert' o(
all +in!sN
=ro&ert' rig$ts o( m%nici&al cor&orations an! in!ivi!%als
,ere sa(eg%ar!e!. 2$e cession !i! not o&erate as an
e4tinction or !issol%tion o( cor&orations. 2$e legal entit'
s%rvive! bot$ militar' occ%&ation an! cession. 2$e
cor&orate i!entit' an! liabilit' o( t$e cit' ,as not
e4ting%is$e!.
2K#: entitle! to &rocee! to 9%!gment.
Liasan v. COM%L%C
Facts: -# 0785 ;#n #ct Creating t$e M%nici&alit' o( Dianaton in t$e
=rovince o( Lanao !el )%r< ,as signe! into la,. Dianaton is
com&ose! o( Barrios 2ogaig Ma!al%m Ba'anga Lang+ong
1
)ara+an MatDbo Diga+a&an Magabo 2abangao 2iong+o Colo!an
Mabama+a,an Ma&atagan Bongabong #i&ang Dago,an Ba+i+is
B%ngab%ng LosainMatimos an! Magolat%ng. *t ,as later (o%n! o%t
t$at Barrios 2ogaig Ma!al%m Ba'anga Lang+ong )ara+an MatD
bo Diga+a&an Magabo 2abangao 2iong+o Colo!an
Mabama+a,an ,ere not ,it$in Lanao !el )%r b%t ,it$in Cotabato.
2$e COM3L3C a!o&te! a resol%tion recogniBing t$e ne,
m%nici&alit' (or &%r&oses o( election. Mean,$ile t$e O((ice o( t$e
=resi!ent recommen!e! t$at t$e COM3L3C t$at t$e o&eration o(
t$e stat%te be s%s&en!e! %ntil clari(ie! b' correcting legislation.
2$is triggere! &etitioner to (ile action.
*ss%e: 6ON -# 0785 is %nconstit%tional. :3)
2$e constit%tion re.%ires t$at no bill m%st be enacte!
,$ic$ s$all embrace more t$an one s%b9ect ,$ic$ s$all
be e4&resse! in t$e title o( t$e bill. 6$ile t$e
Constit%tion !oes not re.%ire Congress to em&lo' in t$e
title o( an enactment lang%age o( s%c$ &recision as to
mirror (%ll' in!e4 or catalog%e all t$e contents an! t$e
min%te !etails t$erein t$e title s$o%l! serve t$e &%r&ose
o( t$e constit%tional !eman! t$at it in(orm t$e
legislators t$e &ersons intereste! in t$e s%b9ect o( t$e
bill an! t$e &%blic o( t$e nat%re sco&e an!
conse.%ences o( t$e &ro&ose! la, an! its o&eration.
2est o( t$e s%((icienc' o( a title: ,$et$er or not it is
mislea!ingA tec$nical acc%rac' is not essential an! t$e
s%b9ect nee! not be state! in e4&ress terms ,$ere it is
clearl' in(erable (rom t$e !etails set (ort$.
*n t$is case not t$e slig$test intimation is t$ere t$at
comm%nities in t$e a!9acent &rovince o( Cotabato are
incor&orate! in t$is ne, Lanao !el )%r to,n. 2$e &$rase
"in t$e =rovince o( Lanao !el )%r" rea! ,it$o%t s%btlet'
or contortion ma+es t$e title mislea!ing !ece&tive. For
t$e +no,n (act is t$at t$e legislation $as a t,oD&ronge!
&%r&ose combine! in one stat%te: ;1< it creates t$e
m%nici&alit' o( Dianaton &%r&orte!l' (rom t,ent'Done
barrios in t$e to,ns o( B%tig an! Balabagan bot$ in t$e
&rovince o( Lanao !el )%rA an! ;/< it also !ismembers
t,o m%nici&alities in Cotabato a &rovince !i((erent (rom
Lanao !el )%r.
-es&on!ents: c$ange in bo%n!aries merel' inci!ental.
)C: NOO 2rans(er o( a siBeable &ortion o( territor' (rom
one &rovince to anot$er o( necessit' involves re!%ction
o( area &o&%lation an! income o( t$e (irst an! t$e
corres&on!ing increase o( t$ose o( t$e ot$er. 2$is is as
im&ortant as t$e creation o( a m%nici&alit'. #n! 'et t$e
title !i! not re(lect t$is (act.
Fel,a case: cannot be consi!ere! b' t$e co%rt in t$is
case ,$ile no re(erence to elective o((icials ,ere ma!e
s%c$ ,ere inci!ental to t$e creation o( B M=* an! MD#.
H%me v. Killage o( Fr%it&ort: #n act to incor&orate t$e
village o( Fr%it&ort in t$e Co%nt' o( M%s+egon b%t
stat%te incl%!e! Otta,a. Declare! %nconstit%tional (or
$aving more t$an one s%b9ect. Contention: Ein t$e
Co%nt' o( M%s+egonF a mere s%r&l%sage. )C: t$e co%rt
cannot re9ect a &art o( t$e title (or t$e &%r&ose o( saving
t$e act.
-# 0785 cannot be salvage! ,it$ re(erence to t$e nine
remaining to,ns. 6$ile ,$ere a &ortion o( a stat%te is
ren!ere! %nconstit%tional an! t$e remain!er vali! t$e
&arts ,ill be se&arate! an! t$e constit%tional &ortion
%&$el! it is not so ,$en t$e &arts o( t$e stat%te are so
m%t%all' !e&en!ent an! connecte! as con!itions
consi!erations in!%cements or com&ensations (or eac$
ot$er as to ,arrant a belie( t$at t$e legislat%re inten!e!
t$em as a ,$ole an! t$at i( all co%l! not be carrie! into
e((ect t$e legislat%re ,o%l! not &ass t$e resi!%e
in!e&en!entl' t$en i( some &arts are %nconstit%tional
all t$e &rovisions ,$ic$ are t$%s !e&en!ent con!itional
or connecte! m%st (all ,it$ t$em.
Municipal corporations per!orm t"in !unctions.
&irstl#. 'he# serve as an instrumentalit# o! the
(tate in carr#ing out the !unctions o! government.
(econl#. 'he# act as an agenc# o! the communit#
in the aministration o! local a!!airs. )t is in the
latter character that the# are a separate entit#
acting !or their o"n purposes an not a
subivision o! the (tate.
several (actors come to t$e (ore in t$e consi!eration o(
,$et$er a gro%& o( barrios is ca&able o( maintaining
itsel( as an in!e&en!ent m%nici&alit'. #mongst t$ese are
&o&%lation territor' an! income
)&ea+ing o( t$e original twenty-one barrios ,$ic$
com&rise t$e ne, m%nici&alit' t$e e4&lanator' note
rea!s: t$e territor' is no, a &rogressive comm%nit'A t$e
0
aggregate &o&%lation is largeA an! t$e collective income
is s%((icient to maintain an in!e&en!ent m%nici&alit'.
2$is bill i( enacte! into la, ,ill enable t$e in$abitants
concerne! to govern t$emselves an! en9o' t$e blessings
o( m%nici&al a%tonom'. Obvio%sl' ,$at ,as in t$e min!
o( t$e &ro&onent ,as t$e /1 barrios an! not t$e nine
remaining.
Republic v. Cit# o! *avao
Facts: Davao (ile! an a&&lication (or a Certi(icate o( NonDCoverage
;CNC< (or its &ro&ose! &ro9ect t$e Davao Cit' #rtica )&orts Dome
,it$ t$e 3nvironmental Management B%rea% ;3MB< -egion J*. 2$e
3MB !enie! t$e a&&lication a(ter (in!ing t$at t$e &ro&ose! &ro9ect
,as ,it$in an environmentall' critical area an! r%le! t$at &%rs%ant
to )ec / =D 1C8G ;3nvironmental *m&act )tatement )'stem< in
relation to )ec 0 =D 11C1 ;=$ili&&ine 3nvironment =olic'< Davao
m%st %n!ergo t$e environmental im&act assessment ;3*#< &rocess
to sec%re an 3nvironmental Com&liance Certi(icate ;3CC< be(ore it
can &rocee! ,it$ t$e constr%ction o( its &ro9ect. Davao (ile! a
&etition (or man!am%s an! in9%nction ,it$ t$e -2C o( Davao
alleging t$at its &ro&ose! &ro9ect ,as neit$er an environmentall'
critical &ro9ect nor ,it$in an environmentall' critical areaA t$%s
o%tsi!e t$e sco&e o( t$e 3*) s'stem. Hence it ,as t$e ministerial
!%t' o( t$e D3N- t$ro%g$ t$e 3MB to iss%e a CNC in (avor o(
res&on!ent %&on s%bmission o( t$e re.%ire! !oc%ments.
-2C: (or Davao. LG@s not re.%ire! b' =Ds 1C8G P 1C11 to com&l'
,it$ t$e 3*) la,. Onl' agencies an! instr%mentalities o( t$e NG
incl%!ing GOCCs as ,ell as &rivate cor&orations (irms an! entities
are man!ate! to go t$ro%g$ t$e 3*# &rocess (or t$eir &ro&ose!
&ro9ects ,$ic$ $ave signi(icant e((ect on t$e .%alit' o( t$e
environment. #n LG@ not being an agenc' or instr%mentalit' o(
t$e NG is !eeme! e4cl%!e! %n!er t$e &rinci&le o( e4&ressio %ni%s
est e4cl%sio alteri%s. M-: !enie!
*ss%e: 6ON Davao is re.%ire! to com&l' ,it$ t$e 3*) la,. :3).
QQDavao alrea!' e4&resse! agreement t$at it m%st sec%re an 3CC
(or &ro&ose! &ro9ect $ence moot an! aca!emic b%t t$e )C
!eci!e! to still !isc%ss iss%es to e!%cate t$e benc$ an! bar.
Davao cannot claim e4em&tion (rom coverage o( =D
1C8G.
LG@ a bo!' &olitic an! cor&orate en!o,e! ,it$
&o,ers to be e4ercise! b' it in con(ormit' ,it$ la,. *t
&er(orms !%al (%nctions: ;1< Governmental (%nctions are
t$ose t$at concern t$e $ealt$ sa(et' an! t$e
a!vancement o( t$e &%blic goo! or ,el(are as a((ecting
t$e &%blic generall'. LG@ is an agenc' o( t$e NG ;/<
=ro&rietar' (%nctions are t$ose t$at see+ to obtain
s&ecial cor&orate bene(its or earn &ec%niar' &ro(it an!
inten!e! (or &rivate a!vantage an! bene(it. LG@ agent
o( t$e comm%nit' in t$e a!ministration o( local a((airs.
)ec 1G LGC: !%t' o( t$e LG@s to &romote t$e &eo&le>s
rig$t to a balance! ecolog'. #s a bo!' &olitic en!o,e!
,it$ governmental (%nctions an LG@ $as t$e !%t' to
ens%re t$e .%alit' o( t$e environment ,$ic$ is t$e ver'
same ob9ective o( =D 1C8G.
)ec 0 o( =D 1C8G clearl' states t$at Eno &erson
&artners$i& or cor&oration s$all %n!erta+e or o&erate
an' s%c$ !eclare! environmentall' critical &ro9ect or
area ,it$o%t (irst sec%ring an 3CC iss%e! b' t$e
=resi!ent or $is !%l' a%t$oriBe! re&resentative.F 2$e CC
!e(ines a &erson as eit$er nat%ral or 9%ri!ical. 2$e state
an! its &olitical s%b!ivisions LG@s are 9%ri!ical &ersons.
@n!o%bte!l' t$ere(ore LG@s are not e4cl%!e! (rom t$e
coverage o( =D 1C8G.
)tate &olic': ac$ieve a balance bet,een socioDeconomic
!evelo&ment an! environmental &rotection ,$ic$ are
t$e t,in goals o( s%stainable !evelo&ment. 2$is can onl'
be &ossible i( ,e a!o&t a com&re$ensive an! integrate!
environmental &rotection &rogram ,$ere all t$e
sectors o( t$e comm%nit' are involve! i.e. t$e
government an! t$e &rivate sectors. 2$e LG@s as &art
o( t$e mac$iner' o( t$e government cannot t$ere(ore
be !eeme! as o%tsi!e t$e sco&e o( t$e 3*) s'stem.
Qot$er iss%e: Davao m%st be grante! 3CC it $as !%l' &roven t$at
t$e !ome ,ill not be constr%cte! in an environmentall' critical
area $ence it becomes t$e ministerial !%t' o( t$e D3N- to iss%e
t$e CNC.
(an +uan v. C(C
Facts: 6$en t$e =rovinicial Boar! O((icer &osition ,as le(t vacant
-iBal Governor )an 7%an in(orme! Director #bella o( t$e
De&artment o( B%!get an! Management t$at a certain )antos $a!
ass%me! o((ice as acting =BO an! re.%este! #bella to en!orse
)antos> a&&ointment. #bella $o,ever recommen!e! #lma9ose on
C
t$e basis o( a com&arative st%!' o( all MBOs ,$ic$ incl%!e! )an
7%an>s nominees. #ccor!ing to #bella #lma9ose ,as t$e most
.%ali(ie! since s$e ,as t$e onl' C=# among t$e conten!ers. DMB
@sec Cab%.%it signe! #lma9ose>s a&&ointment &a&ers %&on #bella>s
recommen!ation. @na,are o( #lma9ose>s a&&ointment )an 7%an
reiterate! $is re.%est (or )antos> a&&ointment in a letter to )ec.
Carag%e. DBM -eg. Dir. GalveB ,rote )an 7ose t$at )antos an! $is
ot$er recommen!ees !i! not meet t$e minim%m re.%irements
%n!er Local B%!get Circ%lar 11 (or t$e &osition o( local b%!get
o((icer an! re.%ire! )an 7ose to s%bmit at least t$ree ot$er
nominees. #(ter (in!ing o%t abo%t #lma9ose>s a&&ointment )an 7%an
,rote Carag%e &rotesting against t$e sai! a&&ointment on t$e
gro%n!s t$at Cab%.%it is not legall' a%t$oriBe! to a&&oint t$e =BOA
t$at #lma9ose lac+s t$e re.%ire! t$ree 'ears ,or+ e4&erience as
&rovi!e! in LBC 11A an! t$at %n!er 3O 11/ it is t$e Gov. not t$e
-D or a Congressman ,$o $as t$e &o,er to recommen! nominees
(or t$e &osition o( =BO. DBM t$ro%g$ its Director o( t$e B%rea% o(
Legal P Legislative #((airs ;BLL#< #(%r%ng iss%e! a Memoran!%m
r%ling t$at t$e )an 7%anHs letterD&rotest is not meritorio%s
consi!ering t$at DBM vali!l' e4ercise! its &rerogative in (illingD%&
t$e conteste! &osition since none o( t$e $is nominees met t$e
&rescribe! re.%irements. )an 7%an t$en move! (or a
reconsi!eration o( t$e BLL# r%ling. )%c$ ,as !enie!. He t$en ,rote
t$e C)C ,$ic$ iss%e! resol%tions %&$ol!ing #lma9ose>s
a&&ointment.
*ss%e: 6ON t$e DBM can a&&oint an'one in t$e event t$at t$e
Governor recommen!s %n.%ali(ie! &ersons. NO.
iss%e is not merel' abo%t vali!it' o( a&&ointment o(
=BO b%t involves t$e a&&lication o( a most
im&ortant constit%tional &olic' an! &rinci&le local
autonom#.
6$ere a la, is ca&able o( t,o inter&retations one in
(avor o( centraliBe! &o,er in MalacaRang an! t$e
ot$er bene(icial to local a%tonom' t$e scales m%st
be ,eig$e! in (avor o( a%tonom'.
McMinle'Hs *nstr%ctions: establis$ment o( m%nici&al
governments natives a((or!e! t$e o&&ort%nit' to
manage t$eir o,n local o((icers to t$e (%llest e4tent
o( ,$ic$ t$e' are ca&able an! s%b9ect to t$e least
!egree o( s%&ervision an! control
181C Constit%tion: limite! t$e e4ec%tive &o,er over
local governments to "general s%&ervision . . . as
ma' be &rovi!e! b' la,."
Tecson v. Salas: &resi!ential com&etence is not
even s%&ervision in general b%t general s%&ervision
as ma' be &rovi!e! b' la,. He co%l! not t$%s go
be'on! t$e a&&licable stat%tor' &rovisions ,$ic$
bin! an! (etter $is !iscretion on t$e matter.
)%&ervision goes no (%rt$er t$an "overseeing
or t$e &o,er or a%t$orit' o( an o((icer to see
t$at s%bor!inate o((icers &er(orm t$eir !%ties.
*( t$e latter (ail or neglect to (%l(ill t$em t$e
(ormer ma' ta+e s%c$ action or ste& as
&rescribe! b' la, to ma+e t$em &er(orm t$eir
!%ties."
Control "means t$e &o,er o( an o((icer to
alter or mo!i(' or n%lli(' or set asi!e ,$at a
s%bor!inate $a! !one in t$e &er(ormance o(
t$eir !%ties an! to s%bstit%te t$e 9%!gment o(
t$e (ormer (or t$at o( t$e latter."
-# //G0 "#n #ct #men!ing t$e La, Governing Local
Governments b' *ncreasing 2$eir #%tonom' an!
-eorganiBing Local Governments" ,as &asse!. *t ,as
(ollo,e! in 18G7 ,$en -e&%blic #ct No. C18C t$e
DecentraliBation La, ,as enacte! giving "(%rt$er
a%tonomo%s &o,ers to local governments governments."
1871 Constit%tion: t$e state s$all g%arantee an! &romote
t$e a%tonom' o( LG@s es&eciall' t$e baranga' to ens%re
t$eir (%llest !evelo&ment as sel(Dreliant comm%nities.
article on Local Government ,as incor&orate! into t$e
Constit%tion. *t calle! (or a LGC !e(ining more res&onsive
an! acco%ntable local government str%ct%res.
2$e e4ercise o( greater local a%tonom' is even more mar+e! in t$e
&resent Constit%tion.
#rticle ** )ection /C on )tate =olicies &rovi!es:
)ec. /C. 2$e )tate s$all ens%re t$e a%tonom' o( local
governments
2$e 10 sections in #rticle J on Local Government not onl' reiterate
earlier !octrines b%t give in greater !etail t$e &rovisions ma+ing
local a%tonom' more meaning(%l. 2$%s )ections / an! 1 o( #rticle
J &rovi!e:
G
)ec. /. 2$e territorial an! &olitical s%b!ivisions s$all
en9o' local a%tonom'.
)ec. 1. 2$e Congress s$all enact a LGC ,$ic$ s$all
&rovi!e (or a more res&onsive an! acco%ntable local
government str%ct%re instit%te! t$ro%g$ a s'stem o(
!ecentraliBation ,it$ e((ective mec$anisms o( recall
initiative an! re(eren!%m allocate among t$e
!i((erent LG@s t$eir &o,ers res&onsibilities an!
reso%rces an! &rovi!e (or t$e .%ali(ications
election a&&ointment an! removal term salaries
&o,ers an! (%nctions an! !%ties o( local o((icials an!
all ot$er matters relating to t$e organiBation an!
o&eration o( t$e local %nits.
6$en t$e Civil )ervice Commission inter&rete! t$e recommen!ing
&o,er o( t$e =rovincial Governor as &%rel' !irector' it ,ent
against t$e letter an! s&irit o( t$e constit%tional &rovisions on local
a%tonom'. *( t$e DBM )ecretar' 9ealo%sl' $oar!s t$e entiret' o(
b%!getar' &o,ers an! ignores t$e rig$t o( local governments to
!evelo& sel(Dreliance an! resol%teness in t$e $an!ling o( t$eir o,n
(%n!s t$e goal o( meaning(%l local a%tonom' is (r%strate! an! set
bac+.
2$e rig$t given b' Local B%!get Circ%lar No. 11 ,$ic$ states:
)ec. G.5 S 2$e DBM reserves t$e rig$t to (ill %& an'
e4isting vacanc' ,$ere none o( t$e nominees o( t$e
local c$ie( e4ec%tive meet t$e &rescribe!
re.%irements.
is %ltra vires an! is accor!ingl' set asi!e. 2$e DBM ma'
a&&oint onl' (rom t$e list o( .%ali(ie! recommen!ees
nominate! b' t$e Governor. *( none is .%ali(ie! $e m%st
ret%rn t$e list o( nominees to t$e Governor e4&laining ,$'
no one meets t$e legal re.%irements an! as+ (or ne,
recommen!ees ,$o $ave t$e necessar' eligibilities an!
.%ali(ications.
2$e =BO is e4&ecte! to s'nc$roniBe $is ,or+ ,it$ DBM. More
im&ortant $o,ever is t$e &ro&er a!ministration o( (iscal a((airs at
t$e local level. =rovincial an! m%nici&al b%!gets are &re&are! at
t$e local level an! a(ter com&letion are (or,ar!e! to t$e national
o((icials (or revie,. 2$e' are &re&are! b' t$e local o((icials ,$o
m%st ,or+ ,it$in t$e constraints o( t$ose b%!gets. 2$e' are not
(orm%late! in t$e inner sanct%ms o( an allD+no,ing DBM an!
%nilaterall' im&ose! on local governments ,$et$er or not t$e' are
relevant to local nee!s an! reso%rces. *t is (or t$is reason t$at t$ere
s$o%l! be a gen%ine inter&la' a balancing o( vie,&oints an! a
$armoniBation o( &ro&osals (rom bot$ t$e local an! national
o((icials. *t is (or t$is reason t$at t$e nomination an! a&&ointment
&rocess involves a s$aring o( &o,er bet,een t$e t,o levels o(
government.
*t ma' not be amiss to give b' ,a' o( analog' t$e &roce!%re
(ollo,e! in t$e a&&ointments o( 7%stices an! 7%!ges. @n!er #rticle
K*** o( t$e Constit%tion nominations (or 9%!icial &ositions are ma!e
b' t$e 7%!icial an! Bar Co%ncil. 2$e =resi!ent ma+es t$e
a&&ointments (rom t$e list o( nominees s%bmitte! to $er b' t$e
Co%ncil. )$e cannot a&&l' t$e DBM &roce!%re re9ect all t$e Co%ncil
nominees an! a&&oint anot$er &erson ,$om s$e (eels is better
.%ali(ie!. 2$ere can be no reservation o( t$e rig$t to (ill %& a
&osition ,it$ a &erson o( t$e a&&ointing &o,erHs &ersonal c$oice.
2$e &%blic res&on!entHs grave ab%se o( !iscretion is aggravate! b'
t$e (act t$at Director GalveB re.%ire! t$e =rovincial Governor to
s%bmit at least t$ree ot$er names o( nominees better .%ali(ie!
t$an $is earlier recommen!ation. *t ,as a meaningless e4ercise.
2$e a&&ointment o( t$e &rivate res&on!ent ,as (ormaliBe! be(ore
t$e Governor ,as e4ten!e! t$e co%rtes' o( being in(orme! t$at $is
nominee $a! been re9ecte!. 2$e com&lete !isregar! o( t$e local
governmentHs &rerogative an! t$e sm%g belie( t$at t$e DBM $as
absol%te ,is!om a%t$orit' an! !iscretion are mani(est.
*n $is classic ,or+ "=$ili&&ine =olitical La," Dean Kicente G. )inco
state! t$at t$e val%e o( local governments as instit%tions o(
!emocrac' is meas%re! b' t$e !egree o( a%tonom' t$at t$e'
en9o'. Citing 2oc.%eville $e state! t$at "local assemblies o(
citiBens constit%te t$e strengt$ o( (ree nations. . . . # &eo&le ma'
establis$ a s'stem o( (ree government b%t ,it$o%t t$e s&irit o(
m%nici&al instit%tions it cannot $ave t$e s&irit o( libert'." ;)inco
=$ili&&ine =olitical La, 3levent$ 3!ition &&. 75CD75G<.
O%r national o((icials s$o%l! not onl' com&l' ,it$ t$e constit%tional
&rovisions on local a%tonom' b%t s$o%l! also a&&reciate t$e s&irit
o( libert' %&on ,$ic$ t$ese &rovisions are base!.

Pimentel v. Aguirre
Facts:
'an v. COM%L%C
Facts:
Ganzon v. C(C
7
Facts:
Corillera Broa Coalition v. COA
Facts:
Limbona v. Mangelin
Facts:
8
8
Pelaez v. Auitor General
Facts: =%rs%ant to )ec G8 o( t$e -#C t$e =resi!ent iss%e! 3Os 81D
1/1 1/0 an! 1/GD1/8 ,$ic$ create! 11 &rovinces. =elaeB
instit%te! t$e &resent s&ecial civil action (or a ,rit o( &ro$ibition
,it$ &reliminar' in9%nction against t$e #%!itor General to restrain
$im as ,ell as $is re&resentatives an! agents (rom &assing in
a%!it an' e4&en!it%re o( &%blic (%n!s in im&lementation o( sai! 3Os
an!?or an' !isb%rsement b' sai! m%nici&alities. =elaeB claims t$at
-# /175 $a! alrea!' im&lie!l' re&eale! )ec G8. -# /175 )ec
1:Barrios shall not be created or their boundaries altered nor their
names changed except under the provisions of this Act or by Act of
Congress; All barrios existing at the time of the passage of this Act
shall come under the provisions hereof. 6$en -# /175 became
e((ective barrios ma' "not be create! or t$eir bo%n!aries altere!
nor t$eir names c$ange!" e4ce&t b' #ct o( Congress or o( t$e
corres&on!ing &rovincial boar! "%&on &etition o( a ma9orit' o( t$e
voters in t$e areas a((ecte!" an! t$e "recommen!ation o( t$e
co%ncil o( t$e m%nici&alit' or m%nici&alities in ,$ic$ t$e &ro&ose!
barrio is sit%ate!."
*))@3: *( t$e =resi!ent %n!er t$is ne, la, cannot even create a
barrio can $e create a m%nici&alit' ,$ic$ is com&ose! o( several
barrios since barrios are %nits o( m%nici&alitiesT ,O.
2$e stat%tor' !enial o( t$e &resi!ential a%t$orit' to
create a ne, barrio im&lies a negation o( t$e bigger
&o,er to create m%nici&alities eac$ o( ,$ic$
consists o( several barrios.
n delegation of legislative power!
6$ile t$e &o,er to (i4 s%c$ common bo%n!ar' in
or!er to avoi! or settle con(licts o( 9%ris!iction
bet,een a!9oining m%nici&alities ma' &arta+e o( an
a!ministrative nat%re S involving as it !oes t$e
a!o&tion o( means an! ,a's to carr' into e((ect t$e
la, creating sai! m%nici&alities S t$e a%t$orit' to
create m%nici&al cor&orations is essentiall'
legislative in nat%re. *n t$e lang%age o( ot$er co%rts
it is "strictl' a legislative (%nction" or "solel' an!
e4cl%sivel' t$e e4ercise o( legislative &o,er. "
M%nici&al cor&orations are &%rel' t$e creat%res o(
stat%tes.
#lt$o%g$ Congress ma' !elegate to anot$er branc$
o( t$e Government t$e &o,er to (ill in t$e !etails in
t$e e4ec%tion en(orcement or a!ministration o( a
la, it is essential to (orestall a violation o( t$e
&rinci&le o( se&aration o( &o,ers t$at sai! la,: ;a<
be com&lete in itsel( S it m%st set (ort$ t$erein t$e
&olic' to be e4ec%te! carrie! o%t or im&lemente!
b' t$e !elegate S an! ;b< (i4 a stan!ar! S t$e
15
limits o( ,$ic$ are s%((icientl' !eterminate or
!eterminable S to ,$ic$ t$e !elegate m%st con(orm
in t$e &er(ormance o( $is (%nctions. )ection G8 o(
t$e -evise! #!ministrative Co!e !oes not meet
t$ese ,ell settle! re.%irements (or a vali!
!elegation o( t$e &o,er to (i4 t$e !etails in t$e
en(orcement o( a la,. *t !oes not en%nciate an'
&olic' to be carrie! o%t or im&lemente! b' t$e
=resi!ent. Neit$er !oes it give a stan!ar!
s%((icientl' &recise to avoi! t$e evil e((ects above
re(erre! to.
)c$ec$ter case: N*-# %nconstit%tional. *t s%&&lies
no stan!ar!s (or an' tra!e in!%str' or activit'. *t
!oes not %n!erta+e to &rescribe r%les o( con!%ct to
be a&&lie! to &artic%lar states o( (act !etermine! b'
a&&ro&riate a!ministrative &roce!%re. *nstea! o(
&rescribing r%les o( con!%ct it a%t$oriBes t$e
ma+ing o( co!es to &rescribe t$em. For t$at
legislative %n!erta+ing )ec. 1 sets %& no stan!ar!s
asi!e (rom t$e statement o( t$e general aims o(
re$abilitation correction an! e4&ansion !escribe! in
)ec. 1. *n vie, o( t$e sco&e o( t$at broa!
!eclaration an! o( t$e nat%re o( t$e (e, restrictions
t$at are im&ose! t$e !iscretion o( t$e =resi!ent in
a&&roving or &rescribing co!es an! t$%s enacting
la,s (or t$e government o( tra!e an! in!%str'
t$ro%g$o%t t$e co%ntr' is virt%all' %n(ettere!. 6e
t$in+ t$at t$e co!e ma+ing a%t$orit' t$%s con(erre!
is an %nconstit%tional !elegation o( legislative
&o,er.
*( t$e term "%n(air com&etition" is so broa! as to
vest in t$e =resi!ent a !iscretion t$at is "virt%all'
%n(ettere!." an! conse.%entl' tantamo%nt to a
!elegation o( legislative &o,er it is obvio%s t$at
"&%blic ,el(are" ,$ic$ $as even a broa!er
connotation lea!s to t$e same res%lt. *n (act i( t$e
vali!it' o( t$e !elegation o( &o,ers ma!e in )ection
G8 ,ere %&$el! t$ere ,o%l! no longer be an' legal
im&e!iment to a stat%tor' grant o( a%t$orit' to t$e
=resi!ent to !o an't$ing ,$ic$ in $is o&inion ma'
be re.%ire! b' &%blic ,el(are or &%blic interest.
)%c$ grant o( a%t$orit' ,o%l! be a virt%al ab!ication
o( t$e &o,ers o( Congress in (avor o( t$e 34ec%tive
an! ,o%l! bring abo%t a total colla&se o( t$e
!emocratic s'stem establis$e! b' o%r Constit%tion
,$ic$ it is t$e s&ecial !%t' an! &rivilege o( t$is
Co%rt to %&$ol!.
the executive orders in "uestion were issued after
the legislative bills for the creation of the
municipalities involved in this case had failed to
pass Congress. # better &roo( o( t$e (act t$at t$e
iss%ance o( sai! e4ec%tive or!ers entails t$e
e4ercise o( &%rel' legislative (%nctions can $ar!l' be
given.
n the #resident$s power of control!
)ec 15 ;1< #rt. K** Consti: The #resident shall have control of all
the executive departments% bureaus% or offices% exercise general
supervision over all local governments as may be provided by law%
and ta&e care that the laws be faithfully executed.
2$e &o,er o( control %n!er t$is &rovision im&lies t$e
rig$t o( t$e =resi!ent to inter(ere in t$e e4ercise o(
s%c$ !iscretion as ma' be veste! b' la, in t$e
o((icers o( t$e e4ec%tive !e&artments b%rea%s or
o((ices o( t$e national government as ,ell as to act
in lie% o( s%c$ o((icers. 2$is po"er is enie b#
the Constitution to the %xecutive- inso!ar as
local governments are concerne.
LG@s: (%n!amental la, &ermits $im to ,iel! no
more a%t$orit' t$an t$at o( c$ec+ing ,$et$er sai!
local governments or t$e o((icers t$ereo( &er(orm
t$eir !%ties as &rovi!e! b' stat%tor' enactments.
2$e =resi!ent cannot inter(ere ,it$ local
governments so long as t$e same or its o((icers act
6it$in t$e sco&e o( t$eir a%t$orit'.
@&on t$e ot$er $an! i( t$e =resi!ent co%l! create a
m%nici&alit' $e co%l! in e((ect remove an' o( its
o((icials b' creating a ne, m%nici&alit' an!
incl%!ing t$erein t$e barrio in ,$ic$ t$e o((icial
concerne! resi!es (or $is o((ice ,o%l! t$ereb'
become vacant.G 2$%s b' merel' bran!is$ing t$e
&o,er to create a ne, m%nici&alit' ;i( $e $a! it<
,it$o%t act%all' creating it $e co%l! com&el local
o((icials to s%bmit to $is !ictation t$ereb' in e((ect
11
e4ercising over t$em t$e &o,er o( control !enie! to
$im b' t$e Constit%tion.
2$en also t$e &o,er o( control o( t$e =resi!ent
over e4ec%tive !e&artments b%rea%s or o((ices
im&lies no more t$an t$e a%t$orit' to ass%me
!irectl' t$e (%nctions t$ereo( or to inter(ere in t$e
e4ercise o( !iscretion b' its o((icials. Mani(estl'
s%c$ control !oes not incl%!e t$e a%t$orit' eit$er to
abolis$ an e4ec%tive !e&artment or b%rea% or to
create a ne, one. #s a conse.%ence t$e allege!
&o,er o( t$e =resi!ent to create m%nici&al
cor&orations ,o%l! necessaril' connote t$e e4ercise
b' $im o( an a%t$orit' even greater t$an t$at o(
control ,$ic$ $e $as over t$e e4ec%tive
!e&artments b%rea%s or o((ices. *n ot$er ,or!s )ec
G8 o( t$e -evise! #!ministrative Co!e !oes not
merel' (ail to com&l' ,it$ t$e constit%tional
man!ate above .%ote!. *nstea! o( giving t$e
=resi!ent less &o,er over local governments t$an
t$at veste! in $im over t$e e4ec%tive !e&artments
b%rea%s or o((ices it reverses t$e &rocess an! !oes
t$e e4act o&&osite b' con(erring %&on $im more
&o,er over m%nici&al cor&orations t$an t$at ,$ic$
$e $as over sai! e4ec%tive !e&artments b%rea%s or
o((ices.
*n s$ort even i( it !i! entail an %n!%e !elegation o(
legislative &o,ers as it certainl' !oes sai! )ection
G8 as &art o( t$e -evise! #!ministrative Co!e
a&&rove! on Marc$ 15 1817 m%st be !eeme!
re&eale! b' t$e s%bse.%ent a!o&tion o( t$e
Constit%tion in 181C ,$ic$ is %tterl' incom&atible
an! inconsistent ,it$ sai! stat%tor' enactment.
Municipalit# o! .apalong v. Mo#a
Facts: =res. Garcia create! t$e M%nici&alit' o( )anto 2omas (rom
&ortions o( t$e M%nici&alit' o( Ma&along. )to. 2omas no, asserts
9%ris!iction over eig$t barrios o( Ma&along. )to. 2omas t$en (ile! a
com&laint against Ma&along (or settlement o( t$e m%nici&al
bo%n!ar' !is&%te.
*ss%e: 6ON )anto 2omas legall' e4ists. NO.
#s r%le! in t$e =elaeB case t$e =resi!ent $as no
&o,er to create a m%nici&alit'. )ince &rivate
res&on!ent $as no legal &ersonalit' it can not be a
&art' to an' civil action an! as s%c$ 7%!ge Mo'a
s$o%l! $ave !ismisse! t$e case since (%rt$er
&rocee!ings ,o%l! be &ointless. 2$e -%les o( Co%rt
e4&ressl' &rovi!es t$at onl' "entities a%t$oriBe! b'
la, ma' be &arties in a civil action.

Alvarez v. Guingona /supra- see p.01
Ca"aling v. COM%L%C
Facts: =resi!ent 3stra!a signe! into la, -# 885G ;#ct Creating 2$e
Cit' O( )orsogon B' Merging 2$e M%nici&alities O( Bacon #n!
)orsogon *n 2$e =rovince O( )orsogon #n! #&&ro&riating F%n!s
2$ere(or<. 2$e COM3L3C con!%cte! a &lebiscite in Bacon an!
)orsogon an! s%bmitte! t$e matter (or rati(ication. 2$e =lebiscite
Cit' Boar! o( Canvassers ;=CBC< t$en &roclaime! t$e creation o(
t$e Cit' o( )orsogon as $aving been rati(ie! an! a&&rove! b' t$e
ma9orit' o( t$e votes cast in t$e &lebiscite. Ca,aling invo+ing $is
rig$ts as a ta4&a'er (ile! a &etition (or certiorari see+ing t$e
ann%lment o( t$e &lebiscite an! c$allenging -# 885G.
*ss%es:
1. 6ON t$e creation o( )orsogon Cit' b' merging t,o
m%nici&alities violates )ection 0C5;a< LGC ;in relation to
)ection 15 #rticle J o( t$e Constit%tion< ,$ic$ re.%ires t$at
onl' "a m%nici&alit' or a cl%ster o( baranga's ma' be
converte! into a com&onent cit'" NO.
Criteria (or t$e creation o( a cit':
)3C2*ON 0C5. -e.%isites (or Creation. S ;a< #
m%nici&alit' or a cl%ster o( baranga's ma' be
converte! into a com&onent cit' i( it $as an average
ann%al income as certi(ie! b' t$e De&artment o(
Finance o( at least 2,ent' million ;=/5555555.55<
(or t$e last t,o ;/< consec%tive 'ears base! on 1881
constant &rices an! i( it $as eit$er o( t$e (ollo,ing
re.%isites: ;i< a contig%o%s territor' o( at least one
$%n!re! ;155< s.%are +ilometers as certi(ie! b' t$e
Lan!s Management B%rea%A or ;ii< a &o&%lation o( not
less t$an one $%n!re! (i(t' t$o%san! ;1C5555<
in$abitants as certi(ie! b' t$e National )tatistics
O((ice: =rovi!e! 2$at t$e creation t$ereo( s$all not
re!%ce t$e lan! area &o&%lation an! income o( t$e
original %nit or %nits at t$e time o( sai! creation to
less t$an t$e minim%m re.%irements &rescribe!
$erein. ;b< 2$e territorial 9%ris!iction o( a ne,l'D
1/
create! cit' s$all be &ro&erl' i!enti(ie! b' metes an!
bo%n!s. 2$e re.%irement on lan! area s$all not a&&l'
,$ere t$e cit' &ro&ose! to be create! is com&ose!
o( one ;1< or more islan!s. 2$e territor' nee! not be
contig%o%s i( it com&rises t,o ;/< or more islan!s. ;c<
2$e average ann%al income s$all incl%!e t$e income
accr%ing to t$e general (%n! e4cl%sive o( s&eci(ic
(%n!s trans(ers an! nonDrec%rring income."
=etitionerHs constricte! rea!ing o( )ection 0C5;a< o(
t$e Co!e is erroneo%s. 2$e &$rase "# m%nici&alit' or
a cl%ster o( baranga's ma' be converte! into a
com&onent cit'" is not a criterion b%t sim&l' one o(
t$e mo!es b' ,$ic$ a cit' ma' be create!. )ection
15 #rticle J o( t$e Constit%tion .%ote! earlier an!
,$ic$ &etitioner cite! in s%&&ort o( $is &ost%re
allo,s t$e merger o( LG@s to create a &rovince cit'
m%nici&alit' or baranga' in accor!ance ,it$ t$e
criteria establis$e! b' t$e Co!e.
2$e creation o( an entirel' ne, LG@ t$ro%g$ a
!ivision or a merger o( e4isting LG@s is recogniBe!
%n!er t$e Constit%tion &rovi!e! t$at s%c$ merger
or !ivision s$all com&l' ,it$ t$e re.%irements
&rescribe! b' t$e Co!e.
1. 6ON it violates t$e Eone bill one s%b9ectF r%le. NO.
=etitioner conten!s t$at -.#. No. 885G act%all'
embraces t,o &rinci&al s%b9ects ,$ic$ are: ;1< t$e
creation o( t$e Cit' o( )orsogon an! ;/< t$e
abolition o( t$e M%nici&alities o( Bacon an!
)orsogon. 6$ile t$e title o( t$e #ct s%((icientl'
in(orms t$e &%blic abo%t t$e creation o( )orsogon
Cit' &etitioner claims t$at no s%c$ in(ormation $as
been &rovi!e! on t$e abolition o( t$e M%nici&alities
o( Bacon an! )orsogon.
Contrar' to &etitionerHs assertion t$ere is onl' one
s%b9ect embrace! in t$e title o( t$e la, t$at is t$e
creation o( t$e Cit' o( )orsogon. 2$e
abolition?cessation o( t$e cor&orate e4istence o( t$e
M%nici&alities o( Bacon an! )orsogon !%e to t$eir
merger is not a s%b9ect se&arate an! !istinct (rom
t$e creation o( )orsogon Cit'. )%c$
abolition?cessation ,as b%t t$e logical nat%ral an!
inevitable conse.%ence o( t$e merger. Ot$er,ise
&%t it is t$e necessar' means b' ,$ic$ t$e Cit' o(
)orsogon ,as create!. Hence t$e title o( t$e la,
"#n #ct Creating t$e Cit' o( )orsogon b' Merging
t$e M%nici&alities o( Bacon an! )orsogon in t$e
=rovince o( )orsogon an! #&&ro&riating F%n!s
2$ere(or" cannot be sai! to e4cl%!e t$e inci!ental
e((ect o( abolis$ing t$e t,o m%nici&alities nor can it
be consi!ere! to $ave !e&rive! t$e &%blic o( (air
in(ormation on t$is conse.%ence.
1. 6ON t$e &lebiscite ,as timel' con!%cte!. :3).
2$e la, ,as (irst &%blis$e! in t$e #%g%st /C /555
iss%e o( 2OD#: a ne,s&a&er o( general circ%lation.
2$en on )e&tember 51 /555 it ,as &%blis$e! in a
ne,s&a&er o( local circ%lation in t$e =rovince o(
)orsogon. 2$%s t$e &%blication o( t$e la, ,as
com&lete! on )e&tember 1 /555 ,$ic$ !ate
accor!ing to t$e COM3L3C s$o%l! be t$e rec+oning
&oint in !etermining t$e 1/5D!a' &erio! ,it$in
,$ic$ to con!%ct t$e &lebiscite not (rom t$e !ate o(
its a&&roval ;#%g%st 1G /555< ,$en t$e la, $a! not
'et been &%blis$e!. 2$e COM3L3C arg%es t$at since
&%blication is in!is&ensable (or t$e e((ectivit' o( a
la, citing t$e lan!mar+ case o( 2aRa!a vs. 2%vera
it co%l! onl' sc$e!%le t$e &lebiscite a(ter t$e #ct
too+ e((ect. 2$%s t$e COM3L3C concl%!es t$e
December 1G /555 &lebiscite ,as ,ell ,it$in t$e
1/5D!a' &erio! (rom t$e e((ectivit' o( t$e la, on
)e&tember 1 /555
t$e &lebiscite s$all be con!%cte! ,it$in 1/5 !a's
(rom t$e !ate o( t$e e((ectivit' o( t$e la, not (rom
its a&&roval. 6$ile t$e same &rovision allo,s a la,
or or!inance to (i4 "anot$er !ate" (or con!%cting a
&lebiscite still s%c$ !ate m%st be rec+one! (rom t$e
!ate o( t$e e((ectivit' o( t$e la,.
Conse.%entl' t$e ,or! "a&&roval" in )ection C0 o(
-.#. No. 885G ,$ic$ s$o%l! be rea! toget$er ,it$
)ection GC ;e((ectivit' o( t$e #ct< t$ereo( co%l! onl'
mean "e((ectivit'" as %se! an! contem&late! in
)ection 15 o( t$e Co!e. 2$is constr%ction is in
accor! ,it$ t$e (%n!amental r%le t$at all &rovisions
o( t$e la,s relating to t$e same s%b9ect s$o%l! be
11
rea! toget$er an! reconcile! to avoi! inconsistenc'
or re&%gnanc' to establis$e! 9%ris&r%!ence
Pelaez v. Auitor General /supra- see p.021
Municipalit# o! Cani3a# v. CA
Facts: 2$e M%nici&alities o( #licia an! Can!i9a' ,ere in !is&%te over
barrio?baranga' =aga$at. 2$e -2C r%le! in (avor o( Can!i9a'.
C# :
1. Co%rt re9ecte! t$e bo%n!ar' line being claime! b' &etitioner
since it ,o%l! in e((ect &lace "&racticall' all o( Barrio
=aga$at . . . &art o( Barrio Cagongcagong an! &ortions o(
Barrio =%tlongcam an! La Hacien!a an! all o( Barrio
Ma$a'ag an! Barrio !el Monte ,it$in t$e territorial
9%ris!iction o( Can!i9a'." Can!i9a' ,ill not onl' eng%l( t$e
entire barrio o( =aga$at b%t also o( t$e barrios o(
=%tlongcam Ma$a'ag Del Monte Cagongcagong an! a
&art o( t$e M%nici&alit' o( Mabini. Can!i9a' ,ill eat %& a big
c$%n+ o( territories (ar e4cee!ing $er territorial 9%ris!iction
%n!er t$e la, creating $er.
/. 2rial co%rt erre! in rel'ing on 34$. JDCommissioner Ue4$ibit
(or &etitionerV beca%se in e((ect it incl%!e! &ortions o(
Barrios =%tlongcam an! La Hacien!a ,it$in t$e 9%ris!iction
o( Can!i9a' ,$en sai! barrios are %n!is&%te!l' &art o(
#licia>s territor' %n!er 3O/GC creating t$e latter"
3. #(ter an e4amination o( t$e res&ective s%rve' &lans o(
&etitioner an! res&on!ent s%bmitte! as e4$ibits co%rt:
"bot$ &lans are ina!e.%ate inso(ar as i!enti('ing t$e
mon%ments o( t$e bo%n!ar' line bet,een Can!i9a' an! t$e
M%nici&alit' o( Mabini ;,$ic$ is not a &art' to t$is case< as
!eclare! b' t$e =rovincial Boar! o( Bo$ol. Neit$er &lan
s$o,s ,$ere LoocD2abasan Lomislis *slan! 2agtang
Canlirong mentione! in t$e a(ore.%ote! bo%n!ar' line
!eclare! b' t$e =rovincial Boar! o( Bo$ol are act%all'
locate!." 2$e res&on!ent Co%rt a(ter ,eig$ing an!
consi!ering t$e im&ort o( certain o((icial acts incl%!ing 3O.
/GC !ate! )e&tember 1G 1808 ;,$ic$ create! t$e
m%nici&alit' o( #licia (rom o%t o( certain barrios o( t$e
m%nici&alit' o( Mabini< an! #ct 8G8 o( t$e =$ili&&ine
Commission !ate! October 11 1851 ;,$ic$ set (ort$ t$e
res&ective com&onent territories o( t$e m%nici&alities o(
Mabini an! Can!i9a'< concl%!e! t$at "Barrio B%la,an (rom
,$ere barrio =aga$at originate! is not mentione! as one o(
t$e barrios constit%te! as &art o( !e(en!antDa&&ellant
M%nici&alit' o( #licia. Neit$er !o t$e' s$o, t$at Barrio
=aga$at (orms &art o( &lainti((Da&&ellant M%nici&alit' o(
Can!i9a'."
4. C#: t$ere is an e.%i&on!erance o( evi!ence 6$en t$e
scale s$all stan! %&on an e.%i&oise an! t$ere is not$ing in
t$e evi!ence ,$ic$ s$all incline it to one si!e or t$e ot$er
t$e co%rt ,ill (in! (or t$e !e(en!ant. @n!er sai! &rinci&le
t$e &lainti(( m%st rel' on t$e strengt$ o( $is evi!ence an!
not on t$e ,ea+ness o( !e(en!antHs claim. 3ven i( t$e
evi!ence o( t$e &lainti(( ma' be stronger t$an t$at o( t$e
!e(en!ant t$ere is no &re&on!erance o( evi!ence on $is
si!e i( s%c$ evi!ence is ins%((icient in itsel( to establis$ $is
ca%se o( action
*ss%es:
1. 6ON t$e C# erre! in its a&&lication o( t$e &rinci&le o(
"e.%i&on!erance o( evi!ence" (or $aving base! its r%ling against
&etitioner on !oc%mentar' evi!ence ,$ic$ &etitioner claims are
voi!
/. t$at t$e c$allenge! Decision "!oes not solve t$e &roblem o( bot$
to,ns b%t t$ro,s t$em bac+ again to t$eir controvers'."
6it$ res&ect to t$e (irst an! secon! gro%n!s ,e (in!
t$at t$e iss%es o( (act in t$is case $a! been a!e.%atel'
&asse! %&on b' res&on!ent Co%rt in its Decision ,$ic$
is ,ellDs%&&orte! b' t$e evi!ence on recor!. 2$e
!etermination o( e.%i&on!erance o( evi!ence b' t$e
res&on!ent Co%rt involves t$e a&&reciation o( evi!ence
b' t$e latter trib%nal ,$ic$ ,ill not be revie,e! b' t$is
Co%rt %nless s$o,n to be ,$imsical or ca&ricio%sA $ere
t$ere $as been no s%c$ s$o,ing.
Neit$er &art' ,as able to ma+e o%t a caseA neit$er si!e
co%l! establis$ its ca%se o( action an! &revail ,it$ t$e
evi!ence it $a!. #s a conse.%ence t$ereo( t$e co%rts
can onl' leave t$em as t$e' are. *n s%c$ cases co%rts
$ave no c$oice b%t to !ismiss t$e com&laints?&etitions.
1.#licia>s &%r&orte! lac+ o( 9%ri!ical &ersonalit' as a res%lt o(
$aving been create! %n!er a voi! e4ec%tive or!er
Can!i9a' commence! its collateral attac+ on t$e
9%ri!ical &ersonalit' o( #licia some t$irt' (ive 'ears
a(ter it (irst came into e4istence in 1808. *t a&&ears
t$at a(ter &resentation o( its evi!ence Can!i9a'
as+e! t$e trial co%rt to bar #licia (rom &resenting its
evi!ence on t$e gro%n! t$at it $a! no 9%ri!ical
10
&ersonalit'. Can!i9a' conten!e! t$at 3O /GC iss%e!
b' is n%ll an! voi! ab initio inasm%c$ as )ec G8 o(
t$e -#C on ,$ic$ sai! 3O ,as base! constit%te!
an %n!%e !elegation o( legislative &o,ers to t$e
=resi!ent o( t$e =$ili&&ines an! ,as t$ere(ore
!eclare! %nconstit%tional &er t$is Co%rtHs r%ling in
#elae' vs. Auditor (eneral.

)unicipality of San *arciso% +ue'on vs. )ende'% Sr:
3O 1C1 creating t$e m%nici&al !istrict o( )an #n!res
,as iss%e! on /5 #%g%st 18C8 b%t it ,as onl' after
almost thirty ,-./ years or on 5C 7%ne 1888 t$at
t$e m%nici&alit' o( )an Narciso (inall' !eci!e! to
c$allenge t$e legalit' o( t$e e4ec%tive or!er. *n t$e
meantime t$e M%nici&al !istrict an! later t$e
M%nici&alit' o( )an #n!res began an! contin%e! to
e4ercise t$e &o,ers an! a%t$orit' o( a !%l' create!
LG@. Granting t$at 3O 1C1 ,as a com&lete n%llit'
(or being t$e res%lt o( an %nconstit%tional !elegation
o( legislative &o,er t$e &ec%liar circ%mstances
obtaining in t$is case $ar!l' co%l! o((er a c$oice
ot$er t$an to consi!er t$e M%nici&alit' o( )an
#n!res to $ave at least attaine! a stat%s %ni.%el' o(
its o,n closel' a&&ro4imating i( not in (act
attaining t$at o( a de facto m%nici&al cor&oration.
Conventional ,is!om cannot allo, it to be
ot$er,ise. Create! in 18C8 b' virt%e o( 3O 1C1 t$e
M%nici&alit' o( )an #n!res $a! been in e4istence (or
more t$an si4 'ears ,$en on /0 December 18GC
#elae' vs. Auditor (eneral ,as &rom%lgate!. 2$e
r%ling co%l! $ave so%n!e! t$e call (or a similar
!eclaration o( t$e %nconstit%tionalit' o( 3O 1C1 b%t
it ,as not to be t$e case. On t$e contrar' certain
governmental acts all &ointe! to t$e )tateHs
recognition o( t$e contin%e! e4istence o( t$e
M%nici&alit' o( )an #n!res:
1. 3O 170 classi(ie! t$e M%nici&alit' o( )an #n!res
as a (i(t$ class m%nici&alit' a(ter $aving
s%r&asse! t$e income re.%irement.
/. @n!er #O 11 t$e M%nici&alit' o( )an #n!res $a!
been covere! b' t$e 15t$ M%nici&al Circ%it Co%rt
o( )an FranciscoD)an #n!res (or t$e &rovince o(
W%eBon.
1. @n!er t$e Or!inance ;a!o&te! on 1C October
188G< a&&ortioning t$e seats o( t$e Ho%se o(
-e&resentatives a&&en!e! to t$e 1887
Constit%tion t$e M%nici&alit' o( )an #n!res $as
been consi!ere! to be one o( t$e t,elve ;1/<
m%nici&alities com&osing t$e 2$ir! District o( t$e
&rovince o( W%eBon.
0. )ection 00/ ;!< o( t$e LGC to t$e e((ect t$at
m%nici&al !istricts "organiBe! &%rs%ant to
&resi!ential iss%ances or e4ec%tive or!ers an!
,$ic$ $ave t$eir res&ective sets o( elective
m%nici&al o((icials $ol!ing o((ice at t$e time o(
t$e e((ectivit' o( ;t$e< Co!e s$all $ence(ort$ be
consi!ere! as reg%lar m%nici&alities."
No &retension o( %nconstit%tionalit' per se o(
)ection 00/ ;!< o( t$e LGC is &ro((ere!. *t is !o%bt(%l
,$et$er s%c$ a &rete4t even i( ma!e ,o%l!
s%ccee!. 2$e &o,er to create &olitical s%b!ivisions
is a (%nction o( t$e legislat%re. Congress !i! 9%st
t$at ,$en it $as incor&orate! )ection 00/ ;!< in t$e
Co!e. Curative la,s ,$ic$ in essence are
retros&ective an! aime! at giving "vali!it' to acts
!one t$at ,o%l! $ave been invali! %n!er e4isting
la,s as i( e4isting la,s $ave been com&lie! ,it$"
are vali!l' acce&te! in t$is 9%ris!iction s%b9ect to
t$e %s%al .%ali(ication against im&airment o( veste!
rig$ts. #ll consi!ere! t$e de 0ure stat%s o( t$e
M%nici&alit' o( )an #n!res in t$e &rovince o(
W%eBon m%st no, be conce!e!.
#liciaHs sit%ation in t$e instant case is stri+ingl'
similar to t$at o( t$e m%nici&alit' o( )an #n!res.
#licia ,as create! b' virt%e o( 3O /GC in 1808 or
ten 'ears a$ea! o( t$e m%nici&alit' o( )an #n!res
an! t$ere(ore $a! been in e4istence (or all o(
si4teen 'ears ,$en #elae' vs. Auditor (eneral ,as
&rom%lgate!. #n! vario%s governmental acts
t$ro%g$o%t t$e 'ears all in!icate t$e )tateHs
recognition an! ac+no,le!gment o( t$e e4istence
t$ereo(.
For instance %n!er #O 11 aboveDmentione! t$e
M%nici&alit' o( #licia ,as covere! b' t$e 7t$
1C
M%nici&al Circ%it Co%rt o( #liciaDMabini (or t$e
&rovince o( Bo$ol. Li+e,ise %n!er t$e Or!inance
a&&en!e! to t$e 1887 Constit%tion t$e M%nici&alit'
o( #licia is one o( t,ent' m%nici&alities com&rising
t$e 2$ir! District o( Bo$ol.
*nasm%c$ as res&on!ent m%nici&alit' o( #licia is
similarl' sit%ate! as t$e m%nici&alit' o( )an #n!res
it s$o%l! li+e,ise bene(it (rom t$e e((ects o( )ec 00/
;!< o( t$e LGC an! s$o%l! $ence(ort$ be consi!ere!
as a reg%lar de 0ure m%nici&alit'.

$ilas v. Cit# o! Manila /supra- see p.41
Pailla v. COM%L%C
Facts: # &lebiscite in t$e matter o( t$e creation o( t$e M%nici&alit'
o( 2%la'DNaDL%&a ,as $el! in t$e m%nici&alit' o( Labo &%rs%ant to
-# 71CC an! t$e Constit%tion. Onl' /885 (avore! its creation ,$ile
118 vote! against it. 2$e =lebiscite Boar! o( Canvassers !eclare!
t$e re9ection an! !isa&&roval o( t$e in!e&en!ent M%nici&alit' o(
2NL. Gov. =a!illa see+s to set asi!e t$e &lebiscite an! &ra's t$at a
ne, &lebiscite be %n!erta+en beca%se t$e &revio%s one ,as a
com&lete (ail%re an! t$e res%lts obtaine! ,ere invali! an! illegal
beca%se t$e &lebiscite s$o%l! $ave been con!%cte! onl' in t$e
&olitical %nits a((ecte! i.e. t$e 1/ baranga's com&rising 2NL to
t$e e4cl%sion o( t$e remaining areas o( t$e mot$er %nit.
*ss%e: 6ON t$e &lebiscite con!%cte! is vali!. :3).
=a!illa>s contention t$at t$e 2an r%ling $as been
s%&erse!e! b' t$e rati(ication o( t$e 1887
Constit%tion $ence reinstating t$e =are!es r%ling is
%ntenable. Ol! la,: E&olitical %nit or %nitsF Ne, la,:
E&olitical %nitsF 2$e !eletion o( t$e ,or!s E%nit orF
!oes not a((ect t$e 2an r%ling.
Concom !ebates: Davi!e as+e! (or !eletion o(
E%nit orF beca%se t$e &lebiscite is to be con!%cte!
in all %nits a((ecte!.
=olitical %nits !irectl' a((ecte!: resi!ents o( t$e
&olitical entit' ,$o ,o%l! be economicall'
!islocate! b' t$e se&aration o( a &ortion t$ereo( L
%nits ,$ic$ ,o%l! &artici&ate in t$e &lebiscite.
'an v. COM%L%C /supra- see p.51
Mirana v. Aguirre
Facts: *n 1880 -# 77/5 converting t$e m%nici&alit' o( )antiago to
an in!e&en!ent com&onent cit' ,as signe! into la, an! t$erea(ter
rati(ie! in a &lebiscite. Fo%r 'ears later -# 8C/8 ,$ic$ amen!e!
-# 77/5 ,as enacte! c$anging t$e stat%s o( )antiago (rom an *CC
to a com&onent cit'. =etitioners assail t$e constit%tionalit' o( -#
8C/8 beca%se it !oes not &rovi!e (or s%bmitting t$e la, (or
rati(ication b' t$e &eo&le o( )antiago Cit' in a &ro&er &lebiscite.
*ss%es:
1. 6ON &etitioners $ave stan!ing. :3).
-%le: constit%tionalit' o( la, can be c$allenge! b'
one ,$o ,ill s%stain a !irect in9%r' as a res%lt o( its
en(orcement
Miran!a ,as ma'or ,$en $e (ile! t$e &etition $is
rig$ts ,o%l! $ave been greatl' a((ecte!. Ot$er
&etitioners are resi!ents an! voters o( )antiago.
1. 6ON &etition involves a &olitical .%estion. NO.
=W: concerne! ,it$ iss%es !e&en!ent %&on t$e
,is!om not legalit' o( a &artic%lar meas%re
7%sticiable iss%e: im&lies a given rig$t legall'
!eman!able an! en(orceable an act or omission
violative o( s%c$ rig$t an! a reme!' grante! an!
sanctione! b' la, (or sai! breac$ o( rig$t
Case at barL9%sticiable. 6ON &etitioners $ave rig$t
to a &lebiscite is a legal .%estion. 6ON la,s &asse!
b' Congress com&l' ,it$ t$e re.%irements o( t$e
Consti &ose .%estions t$at t$is co%rt alone can
!eci!e.
1. 6ON t$e c$ange involve! an' creation !ivision merger
abolition or s%bstantial alteration o( bo%n!aries. :3).
6. 7O, a plebiscite is necessar# consiering the change
"as a mere reclassi!ication !rom )CC to CC. 8%(.
# close anal'sis o( t$e sai! constit%tional &rovision
,ill reveal t$at t$e creation !ivision merger
abolition or s%bstantial alteration o( bo%n!aries o(
LG@s involve a common denominator 1 material
c$ange in t$e &olitical an! economic rig$ts o( t$e
1G
LG@s !irectl' a((ecte! as ,ell as t$e &eo&le t$erein.
*t is &recisel' (or t$is reason t$at t$e Constit%tion
re.%ires t$e a&&roval o( t$e &eo&le "in t$e &olitical
%nits directly a((ecte!."
)ec 15 #rt J a!!resse! t$e %n!esirable &ractice in
t$e &ast ,$ereb' LG@s ,ere create! abolis$e!
merge! or !ivi!e! on t$e basis o( t$e vagaries o(
&olitics an! not o( t$e ,el(are o( t$e &eo&le. 2$%s
t$e consent o( t$e &eo&le o( t$e LG@ !irectl'
a((ecte! ,as re.%ire! to serve as a c$ec+ing
mec$anism to an' e4ercise o( legislative &o,er
creating !ivi!ing abolis$ing merging or altering
t$e bo%n!aries o( LG@s. *t is one instance ,$ere t$e
&eo&le in t$eir sovereign ca&acit' !eci!e on a
matter t$at a((ects t$em S !irect !emocrac' o( t$e
&eo&le as o&&ose! to !emocrac' t$r% &eo&leHs
re&resentatives. 2$is &lebiscite re.%irement is also
in accor! ,it$ t$e &$iloso&$' o( t$e Constit%tion
granting more a%tonom' to LG@s.
2$e c$anges t$at ,ill res%lt (rom t$e !o,ngra!ing
o( t$e cit' o( )antiago (rom an in!e&en!ent
com&onent cit' to a com&onent cit' are man' an!
cannot be c$aracteriBe! as ins%bstantial.
2$e in!e&en!ence o( t$e cit' as a &olitical %nit
,ill be !iminis$e!:
X 2$e cit' ma'or ,ill be &lace! %n!er t$e
a!ministrative s%&ervision o( t$e
&rovincial governor.
X 2$e resol%tions an! or!inances o( t$e cit'
co%ncil o( )antiago ,ill $ave to be
revie,e! b' t$e =rovincial Boar! o(
*sabela.
X 2a4es t$at ,ill be collecte! b' t$e cit' ,ill
no, $ave to be s$are! ,it$ t$e &rovince.
6$en -# 77/5 %&gra!e! t$e stat%s o( )antiago
Cit' (rom a m%nici&alit' to an in!e&en!ent
com&onent cit' it re.%ire! t$e a&&roval o( its
&eo&le t$r% a &lebiscite calle! (or t$e &%r&ose.
2$ere is neit$er r$'me nor reason ,$' t$is
&lebiscite s$o%l! not be calle! to !etermine t$e
,ill o( t$e &eo&le o( )antiago Cit' ,$en -# 8C/8
!o,ngra!es t$e stat%s o( t$eir cit'. 2$ere is more
reason to cons%lt t$e &eo&le ,$en a la,
s%bstantiall' !iminis$es t$eir rig$t.
-%le ** #rt G &aragra&$ ;(< ;1< o( t$e *--s o( t$e
LGC is in accor! ,it$ t$e Constit%tion ,$en it
&rovi!es t$at no creation conversion !ivision
merger abolition or s%bstantial alteration o(
bo%n!aries o( LG@) s$all ta+e e((ect %nless
a&&rove! b' a ma9orit' o( t$e votes cast in a
&lebiscite calle! (or t$e &%r&ose in t$e LG@ or
LG@s a((ecte!. 2$e &lebiscite s$all be con!%cte!
b' t$e Commission on 3lections ;COM3L3C<
,it$in one $%n!re! t,ent' ;1/5< !a's (rom t$e
e((ectivit' o( t$e la, or or!inance &rescribing
s%c$ action %nless sai! la, or or!inance (i4es
anot$er !ate.
2$e r%les cover all conversions ,$et$er %&,ar!
or !o,n,ar! in c$aracter so long as t$e' res%lt
in a material c$ange in t$e LG@ !irectl' a((ecte!
es&eciall' a c$ange in t$e &olitical an! economic
rig$ts o( its &eo&le.
'obias v. Abalos
Facts: =rior to t$e enactment o( -# 7G7C ;#n #ct Converting t$e
M%nici&alit' o( Man!al%'ong into a Hig$l' @rbaniBe! Cit' to be
+no,n as t$e Cit' o( Man!al%'ong< t$e m%nici&alities o(
Man!al%'ong an! )an 7%an belonge! to onl' one legislative !istrict.
=%rs%ant to t$e LGC a &lebiscite ,as $el! ,$ere t$e &eo&le o(
Man!al%'ong ,ere as+e! ,$et$er t$e' a&&rove! o( t$e conversion
o( t$e M%nici&alit' o( Man!al%'ong into a $ig$l' %rbaniBe! cit'. 2$e
t%rno%t at t$e &lebiscite ,as onl' 10.01Y o( t$e voting &o&%lation.
Nevert$eless 18G/1 vote! "'es" ,$ereas 7811 vote! "no." B'
virt%e o( t$ese res%lts -# 7G7C ,as !eeme! rati(ie! an! in e((ect.
=etitioners invo+ing t$eir rig$ts as ta4&a'ers an! as resi!ents o(
Man!al%'ong come be(ore t$e co%rt to assail t$e constit%tionalit'
o( -# 7G7C.
*ss%e: 6ON -# 7G7C %nconstit%tional. :3).
1. -# 7G7C contravenes t$e "one s%b9ectDone bill" r%le.
)ec. /G;1< Consti: 3ver' bill &asse! b' t$e Congress
s$all embrace onl' one s%b9ect ,$ic$ s$all be
e4&resse! in t$e title t$ereo(.
=etitioners: incl%sion o( t$e assaile! )ection 08 in
t$e s%b9ect la, res%lte! in t$e latter embracing t,o
&rinci&al s%b9ects: ;1< t$e conversion o(
17
Man!al%'ong into a $ig$l' %rbaniBe! cit'A an! ;/<
t$e !ivision o( t$e congressional !istrict o( )an
7%an?Man!al%'ong into t,o se&arate !istricts.
t$e stat%tor' conversion o( Man!al%'ong into a
$ig$l' %rbaniBe! cit' ,it$ a &o&%lation o( not less
t$an t,o $%n!re! (i(t' t$o%san! in!%bitabl' or!ains
com&liance ,it$ t$e "one cit'Done re&resentative"
&roviso in t$e Constit%tion: 3ac$ cit' ,it$ a
&o&%lation o( at least t,o $%n!re! (i(t' t$o%san! or
eac$ &rovince s$all $ave at least one
re&resentative" ;#rticle K* )ection C;1<
Constit%tion<. Hence it is in com&liance ,it$ t$e
a(orestate! constit%tional man!ate t$at t$e creation
o( a se&arate congressional !istrict (or t$e Cit' o(
Man!al%'ong is !ecree! %n!er #rticle K*** )ection
08 o( -..#. No. 7G7C.
2$e creation o( a se&arate congressional !istrict (or
Man!al%'ong is not a s%b9ect se&arate an! !istinct
(rom t$e s%b9ect o( its conversion into a $ig$l'
%rbaniBe! cit' b%t is a nat%ral an! logical
conse.%ence o( its conversion into a $ig$l'
%rbaniBe! cit'. Keril' t$e title o( -.#. No. 7G7C "#n
#ct Converting t$e M%nici&alit' o( Man!al%'ong *nto
a Hig$l' @rbaniBe! Cit' o( Man!al%'ong" necessaril'
incl%!es an! contem&lates t$e s%b9ect treate!
%n!er )ection 08 regar!ing t$e creation o( a
se&arate congressional !istrict (or Man!al%'ong.
Sumulong v. Comelec! t$e constit%tional
re.%irement as no, e4&resse! in #rticle K* )ection
/G;1< "s$o%l! be given a &ractical rat$er t$an a
tec$nical constr%ction. *t s$o%l! be s%((icient
com&liance ,it$ s%c$ re.%irement i( t$e title
e4&resses t$e general s%b9ect an! all t$e &rovisions
are germane to t$at general s%b9ect."
2idasan v. Comelec! O( co%rse t$e Constit%tion
!oes not re.%ire Congress to em&lo' in t$e title o(
an enactment lang%age o( s%c$ &recision as to
mirror (%ll' in!e4 or catalog%e all t$e contents an!
t$e min%te !etails t$erein. *t s%((ices i( t$e title
s$o%l! serve t$e &%r&ose o( t$e constit%tional
!eman! t$at it in(orm t$e legislators t$e &ersons
intereste! in t$e s%b9ect o( t$e bill an! t$e &%blic o(
t$e nat%re sco&e an! conse"uences o( t$e
&ro&ose! la, an! its o&eration"
1. 6ON t$e !ivision o( )an 7%an an! Man!al%'ong into
se&arate congressional !istricts %n!er )ection 08 o( t$e
assaile! la, res%lting in an increase in t$e com&osition o(
t$e Ho%se o( -e&resentatives be'on! t$at &rovi!e! in
#rticle K* )ec. C;1< o( t$e Constit%tion.
)ec. C;1<. 2$e Ho%se o( -e&resentatives s$all be
com&ose! o( not more t$an t,o $%n!re! an! (i(t'
members %nless ot$er,ise (i4e! b' la, ,$o s$all
be electe! (rom legislative !istricts a&&ortione!
among t$e &rovinces cities an! t$e Metro&olitan
Manila area in accor!ance ,it$ t$e n%mber o( t$eir
res&ective in$abitants an! on t$e basis o( a %ni(orm
an! &rogressive ratio an! t$ose ,$o as &rovi!e!
b' la, s$all be electe! t$ro%g$ a &art' list s'stem
o( registere! national regional an! sectoral &arties
or organiBations.
Limit o( /C5 members is not absol%te. 2$e
Constit%tion clearl' &rovi!es t$at t$e Ho%se o(
-e&resentatives s$all be com&ose! o( not more
t$an /C5 members "%nless ot$er,ise &rovi!e! b'
la,." 2$e inesca&able im&ort o( t$e latter cla%se is
t$at t$e &resent com&osition o( Congress ma' be
increase! i( Congress itsel( so man!ates t$ro%g$ a
legislative enactment. 2$ere(ore t$e increase in
congressional re&resentation man!ate! b' -# 7G7C
is not %nconstit%tional.
1. 6ON t$e !ivision ,as ma!e &%rs%ant to a cens%s s$o,ing
t$at t$e s%b9ect m%nici&alities $ave attaine! t$e minim%m
&o&%lation re.%irements. NO.
=etitioners: t$ere is no mention in t$e assaile! la,
o( an' cens%s to s$o, t$at Man!al%'ong an! )an
7%an $a! eac$ attaine! t$e minim%m re.%irement o(
/C5555 in$abitants to 9%sti(' t$eir se&aration into
t,o legislative !istricts.
)%c$ !oes not s%((ice to stri+e !o,n t$e vali!it' o(
-# 7G7C. 2$e sai! #ct en9o's t$e &res%m&tion o(
$aving &asse! t$ro%g$ t$e reg%lar congressional
&rocesses incl%!ing !%e consi!eration b' t$e
members o( Congress o( t$e minim%m re.%irements
(or t$e establis$ment o( se&arate legislative
18
!istricts. #t an' rate it is not re.%ire! t$at all la,s
emanating (rom t$e legislat%re m%st contain all
relevant !ata consi!ere! b' Congress in t$e
enactment o( sai! la,s.
1. 6ON )ection 08 $as t$e e((ect o( &reem&ting t$e rig$t o(
Congress to rea&&ortion legislative !istricts. NO.
)ec. C;0<: 6it$in t$ree 'ears (ollo,ing t$e ret%rn o(
ever' cens%s t$e Congress s$all ma+e a
rea&&ortionment o( legislative !istricts base! on t$e
stan!ar! &rovi!e! in t$is section.
=etitioners: )ection 08 o( -# 7G7C &reem&ts t$e
rig$t o( Congress to rea&&ortion legislative !istricts
arg%ment bor!ers on t$e abs%r! since &etitioners
overloo+ t$e glaring (act t$at it ,as Congress itsel(
,$ic$ !ra(te! !eliberate! %&on an! enacte! t$e
assaile! la, incl%!ing )ection 08 t$ereo(. Congress
cannot &ossibl' &reem&t itsel( on a rig$t ,$ic$
&ertains to itsel(.
1. 6ON t$e &eo&le o( )an 7%an s$o%l! $ave been ma!e to
&artici&ate in t$e &lebiscite on -.#. No. 7G7C as t$e same
involve! a c$ange in t$eir legislative !istrict.
2$e contention is bere(t o( merit since t$e &rinci&al
s%b9ect involve! in t$e &lebiscite ,as t$e conversion
o( Man!al%'ong into a $ig$l' %rbaniBe! cit'. 2$e
matter o( se&arate !istrict re&resentation ,as onl'
ancillar' t$ereto. 2$%s t$e in$abitants o( )an 7%an
,ere &ro&erl' e4cl%!e! (rom t$e sai! &lebiscite as
t$e' $a! not$ing to !o ,it$ t$e c$ange o( stat%s o(
neig$boring Man!al%'ong.
1. 6ON t$e s%b9ect la, $as res%lte! in "gerr'man!ering"
,$ic$ is t$e &ractice o( creating legislative !istricts to (avor
a &artic%lar can!i!ate or &art'. NO.
#s correctl' observe! b' t$e )olicitor General it
s$o%l! be note! t$at -e&. -onal!o Zamora t$e
a%t$or o( t$e assaile! la, is t$e inc%mbent
re&resentative o( t$e (ormer )an 7%an?Man!al%'ong
!istrict $aving consistentl' ,on in bot$ localities.
B' !ivi!ing )an 7%an?Man!al%'ong -e&. ZamoraHs
constit%enc' $as in (act been !iminis$e! ,$ic$
!evelo&ment co%l! $ar!l' be consi!ere! as
(avorable to $im.
*ela Cruz v. Paras
Facts: Or!inance 80 ,as &asse! b' t$e M%nici&alit' o( Boca%e.
=etitioners are b%siness o,ners ,$o $a! been &revio%sl' iss%e!
licenses b' t$e M%nici&al Ma'or o( Boca%e
*ss%es:
1. 6ON a m%nici&alit' ma' rel' on its &olice &o,er to 9%sti('
t$e enactment o( t$e assaile! or!inance. NO.
=olice &o,er grante! to m%nici&al cor&orations:
"General &o,er o( co%ncil to enact or!inances an!
ma+e reg%lations.D 2$e m%nici&al co%ncil s$all enact
s%c$ or!inances an! ma+e s%c$ reg%lations not
re&%gnant to la, as ma' be necessar' to carr' into
e((ect an! !isc$arge t$e &o,ers an! !%ties
con(erre! %&on it b' la, an! s%c$ as s$all seem
necessar' an! &ro&er to &rovi!e (or t$e $ealt$ an!
sa(et' &romote t$e &ros&erit' im&rove t$e morals
&eace goo! or!er com(ort an! convenience o( t$e
m%nici&alit' an! t$e in$abitants t$ereo( an! (or t$e
&rotection o( &ro&ert' t$erein."
@) v. #ben!an: #n or!inance enacte! b' virt%e o(
&olice &o,er is vali! %nless it contravenes t$e
(%n!amental la, an act o( t$e legislat%re against
&%blic &olic' or is %nreasonable &artial
!iscriminating or in !erogation o( a common rig$t.
@) v. )alaveria: 2$e general ,el(are cla%se $as t,o
branc$es: 1. attac$es itsel( to t$e main tr%n+ o(
m%nici&al a%t$orit' an! relates to s%c$ or!inances
an! reg%lations as ma' be necessar' to carr' into
e((ect an! !isc$arge t$e &o,ers an! !%ties
con(erre! %&on t$e m%nici&al co%ncil b' la,.
/.*t a%t$oriBes s%c$ or!inances as s$all seem
necessar' an! &ro&er to &rovi!e (or t$e $ealt$ an!
sa(et' &romote t$e &ros&erit' im&rove t$e morals
&eace goo! or!er com(ort an! convenience o( t$e
m%nici&alit' an! t$e in$abitants t$ereo( an! (or t$e
&rotection o( &ro&ert' t$erein. *t is a general r%le
t$at or!inances &asse! b' virt%e o( t$e im&lie!
&o,er (o%n! in t$e general ,el(are cla%se m%st be
reasonable consonant ,it$ t$e general &o,ers an!
&%r&oses o( t$e cor&oration an! not inconsistent
,it$ t$e la,s or &olic' o( t$e )tate.
*( nig$t cl%bs ,ere merel' t$en reg%late! an! not
&ro$ibite! certainl' t$e assaile! or!inance ,o%l!
18
&ass t$e test o( vali!it'. QQreasonableness
consonance ,it$ t$e general &o,ers an! &%r&oses
o( m%nici&al cor&orations consistenc' ,it$ t$e la,s
or &olic' o( t$e )tate.
*t is clear t$at in t$e g%ise o( a &olice reg%lation
t$ere ,as in t$is instance a clear invasion o(
&ersonal or &ro&ert' rig$ts &ersonal in t$e case o(
t$ose in!ivi!%als !esiro%s o( &atroniBing t$ose nig$t
cl%bs an! &ro&ert' in terms o( t$e investments
ma!e an! salaries to be earne! b' t$ose t$erein
em&lo'e!.
1. 6ON a m%nici&alit' $as no a%t$orit' to &ro$ibit a la,(%l
b%siness occ%&ation or calling. NO.
-# 818: t$e m%nici&al or cit' boar! or co%ncil o(
eac$ c$artere! cit' s$all $ave t$e &o,er to reg%late
b' or!inance t$e establis$ment maintenance an!
o&eration o( nig$t cl%bs cabarets !ancing sc$ools
&avilions coc+&its bars saloons bo,ling alle's
billiar! &ools an! ot$er similar &laces o(
am%sement ,it$in its territorial 9%ris!iction: . . .
2$en on Ma' /1 18C0 t$e (irst section ,as
amen!e! to incl%!e not merel' "t$e &o,er to
reg%late b%t li+e,ise "&ro$ibit . . ." 2$e title
$o,ever remaine! t$e same an! t$e e4act ,or!ing
,as (ollo,e!. 2$e &o,er grante! remains t$at o(
reg%lation not &ro$ibition. 2$ere is t$%s s%&&ort (or
t$e vie, a!vance! b' &etitioners t$at to constr%e
-# 818 as allo,ing t$e &ro$ibition o( t$e o&eration
o( nig$t cl%bs ,o%l! give rise to a constit%tional
.%estion.
2$ere is a ,i!e ga& bet,een t$e e4ercise o( a
reg%lator' &o,er "to &rovi!e (or t$e $ealt$ an!
sa(et' &romote t$e &ros&erit' im&rove t$e
morals" in t$e lang%age o( t$e #!ministrative Co!e
s%c$ com&etence e4ten!ing to all "t$e great &%blic
nee!s" an! to inter!ict an' calling occ%&ation or
enter&rise.
*t is clear t$at m%nici&al cor&orations cannot
&ro$ibit t$e o&eration o( mig$t cl%bs. 2$e' ma' be
reg%late! b%t not &revente! (rom carr'ing on t$eir
b%siness.
'echnolog# *evelopers v. CA
Facts: 2D receive! a letter (rom acting ma'or Cr%B or!ering t$e (%ll
cessation o( t$e o&eration o( its &lant locate! at G%'ong )ta.
Maria B%lacan %ntil (%rt$er or!er. 2$e letter li+e,ise re.%este! its
&lant manager to bring ,it$ $im to t$e o((ice o( t$e ma'or t$e
(ollo,ing: a< B%il!ing &ermitA b< Ma'orHs &ermitA c< -egion ***D
=oll%tion o( 3nvironment an! Nat%ral -eso%rces #ntiD=oll%tion
=ermit. *n com&liance ,it$ sai! %n!erta+ing &etitioner commence!
to sec%re "-egion ***DDe&artment o( 3nvironmental an! Nat%ral
-eso%rces #ntiD=oll%tion =ermit" alt$o%g$ among t$e &ermits
&revio%sl' sec%re! &rior to t$e o&eration o( &etitionerHs &lant ,as a
"2em&orar' =ermit to O&erate #ir =oll%tion *nstallation" iss%e! b'
t$e t$en National =oll%tion Control Commission ;no, 3nvironmental
Management B%rea%< an! is no, at a stage ,$ere t$e
3nvironmental Management B%rea% is tr'ing to !etermine t$e
correct +in! o( antiD&oll%tion !evise to be installe! as &art o(
&etitionerHs re.%est (or t$e rene,al o( its &ermit.
2DHs attention $aving been calle! to its lac+ o( ma'orHs
&ermit it sent its re&resentatives to t$e o((ice o( t$e ma'or to
sec%re t$e same b%t ,ere not entertaine!. On #&ril G 1888
,it$o%t &revio%s an! reasonable notice %&on &etitioner res&on!ent
acting ma'or or!ere! t$e M%nici&alit'Hs station comman!er to
&a!loc+ t$e &remises o( &etitionerHs &lant t$%s e((ectivel' ca%sing
t$e sto&&age o( its o&eration.
-2C: action (or certiorari &ro$ibition man!am%s ,it$
&reliminar' in9%nction. Clos%re or!er ,as iss%e! in grave ab%se o(
!iscretion. 7%!ge iss%e! o( t$e ,rit o( &reliminar' man!ator'
in9%nction.
M-: -2C iss%e! an or!er ;a< setting asi!e t$e or!er ,$ic$
grante! a 6rit o( =reliminar' Man!ator' *n9%nction an! ;b<
!issolving t$e ,rit conse.%entl' iss%e!.
C#: certiorari an! &ro$ibition ,it$ &reliminar' in9%nction. *n
!%e co%rse t$e &etition ,as !enie! (or lac+ o( merit.
M-: !enie!.
*ss%e: 6ON t$e a&&ellate co%rt committe! a grave ab%se o(
!iscretion in ren!ering its .%estion !ecision an! resol%tion. NO.
2$e a%t$orit' o( t$e local e4ec%tive to &rotect t$e
comm%nit' (rom &oll%tion is t$e center o( t$is
controvers'.
2$e (ollo,ing circ%mstances militate against t$e
maintenance o( t$e ,rit o( &reliminar' in9%nction
so%g$t b' &etitioner:
/5
1. No ma'orHs &ermit $a! been sec%re!. 6$ile it is
tr%e t$at t$e matter o( !etermining ,$et$er t$ere
is a &oll%tion o( t$e environment t$at re.%ires
control i( not &ro$ibition o( t$e o&eration o( a
b%siness is essentiall' a!!resse! to t$e t$en
National =oll%tion Control Commission o( t$e
Ministr' o( H%man )ettlements no, t$e
3nvironmental Management B%rea% o( t$e
De&artment o( 3nvironment an! Nat%ral
-eso%rces it m%st be recogniBe! t$at t$e ma'or
o( a to,n $as as m%c$ res&onsibilit' to &rotect its
in$abitants (rom &oll%tion an! b' virt%re o( $is
&olice &o,er $e ma' !en' t$e a&&lication (or a
&ermit to o&erate a b%siness or ot$er,ise close
t$e same %nless a&&ro&riate meas%res are ta+en
to control an!?or avoi! in9%r' to t$e $ealt$ o( t$e
resi!ents o( t$e comm%nit' (rom t$e emissions in
t$e o&eration o( t$e b%siness.
/. 2$e #cting Ma'or in a letter o( Febr%ar' 1G
1888 calle! t$e attention o( &etitioner to t$e
&oll%tion emitte! b' t$e (%mes o( its &lant ,$ose
o((ensive o!or "not onl' &oll%te t$e air in t$e
localit' b%t also a((ect t$e $ealt$ o( t$e resi!ents
in t$e area" so t$at &etitioner ,as or!ere! to
sto& its o&eration %ntil (%rt$er or!ers an! it ,as
re.%ire! to bring its &ermits ;see (acts<
1. 2$is action o( t$e #cting Ma'or ,as in res&onse
to t$e com&laint o( t$e resi!ents o( Baranga'
G%'ong )ta. Maria B%lacan !irecte! to t$e
=rovincial Governor t$ro%g$ c$annels.
0. 2$e clos%re or!er o( t$e #cting Ma'or ,as iss%e!
onl' a(ter an investigation ,as ma!e b' Marivic
G%ina ,$o in $er re&ort o( December 8 1888
observe! t$at t$e (%mes emitte! b' t$e &lant o(
&etitioner goes !irectl' to t$e s%rro%n!ing $o%ses
an! t$at no &ro&er air &oll%tion !evice $as been
installe!.
C. =etitioner (aile! to &ro!%ce a b%il!ing &ermit (rom
t$e m%nici&alit' o( )ta. Maria b%t instea!
&resente! a b%il!ing &ermit iss%e! b' an o((icial
o( Ma+ati on Marc$ G1887.
G. 6$ile &etitioner ,as able to &resent a tem&orar'
&ermit to o&erate b' t$e t$en National =oll%tion
Control Commission on December 1C 1887 t$e
&ermit ,as goo! onl' %& to Ma' /C 1888.
=etitioner $a! not e4erte! an' e((ort to e4ten! or
vali!ate its &ermit m%c$ less to install an' !evice
to control t$e &oll%tion an! &revent an' $aBar! to
t$e $ealt$ o( t$e resi!ents o( t$e comm%nit'.
2D: $%ge investment. )C: s%c$ is concomitant
,it$ t$e nee! to &romote investment an!
contrib%te to t$e gro,t$ o( t$e econom' is
t$e e.%all' essential im&erative o( &rotecting
t$e $ealt$ na' t$e ver' lives o( t$e &eo&le
(rom t$e !eleterio%s e((ect o( t$e &oll%tion o(
t$e environment.
Chua 9uat v. CA
Facts: Man%el @' an! )ons *nc. re.%este! t$e Cit' 3ngineer an!
B%il!ing O((icial o( Manila to con!emn t$e !ila&i!ate! str%ct%res
locate! at 1/71 to 1/77 =e!ro Gil )t. an! 1CC1 to 1CC7 =aB )t.
=aco Manila all occ%&ie! b' &etitioners. Notices o( con!emnation
,ere iss%e! stating t$at t$e s%b9ect b%il!ings ,ere (o%n! to be in
!angero%s con!ition an! t$ere(ore con!emne! s%b9ect to t$e
con(irmation o( t$e Ma'or as re.%ire! b' )ection /7G o( t$e
Com&ilation o( Or!inances o( t$e Cit' o( Manila. 2$e or!ers ,ere
base! on t$e ins&ection re&orts ma!e b' #rc$itect Oscar D. #n!res
an! t$e Memoran!%mD-e&orts ma!e b' t$e 3val%ation Committee
o( t$e O((ice o( t$e Cit' 3ngineer ,$ic$ all s$o,e! t$at t$e s%b9ect
b%il!ings s%((er (rom str%ct%ral !eterioration b' more t$an C5Y an!
as m%c$ as 85Y.
Civil 3ngineer -om%lo C. Molas a &rivate &ractitioner
ins&ecte! t$e abovementione! str%ct%res %&on t$e re.%est o(
&etitioners $erein. *n $is eval%ation re&ort $e state! t$at alt$o%g$
t$e b%il!ings are ol! t$e' are still str%ct%rall' so%n! an! $ave a
remaining economic li(e o( at least eig$t 'ears.
2$ree mont$s a(ter t$e notices o( con!emnation ,ere
iss%e! &etitioners (ormall' &roteste! against sai! notices o(
con!emnation on t$e gro%n! t$at t$e b%il!ings are still in goo!
&$'sical con!ition an! are str%ct%rall' so%n! base! on t$e
abovementione! certi(ication o( Civil 3ngineer -om%lo C. Molas.
/1
On /G #&ril 1881 Maria Gamboa one o( t$e &etitioners
$erein ,as in(orme! o( t$e iss%ance b' t$e Cit' 3ngineer o( t$e
!emolition or!er ,it$ res&ect to t$e b%il!ing locate! at 1CGC =aB
)t. =aco Manila an! ,as tol! to vacate t$e &remises ,it$in 1C
!a's (rom notice.
On / Ma' 1881 &etitioners (ile! t$e instant =etition (or
=ro$ibition ,it$ =reliminar' *n9%nction an!?or -estraining Or!er
against Cit' Ma'or -amon Bagatsing Cit' 3ngineer an! B%il!ing
O((icer -om%lo !el -osario an! Man%el @' an! )ons *nc. &ra'ing
t$at a restraining or!er or &reliminar' in9%nction be iss%e!
en9oining res&on!ents (rom &rocee!ing ,it$ t$e anno%nce!
!emolition o( t$e s%b9ect b%il!ings t$is &etition be given !%e
co%rse an! a(ter $earing res&on!ents be &ro$ibite! (rom
!emolis$ing sai! b%il!ings. 2$e' allege! a grave ab%se o(
!iscretion amo%nting to lac+ o( 9%ris!iction an! t$at t$ere is no
ot$er &lain s&ee!' an! a!e.%ate reme!'.
2$e Ma'or con(irme! t$e rest o( t$e con!emnation or!ers
iss%e! b' t$e res&on!ent Cit' 3ngineer.
Cit' Ma'or an! Cit' 3ngineer: &etition s$o%l! be !ismisse!
on t$e (ollo,ing gro%n!s: ;a< t$at it involves .%estions o( (acts
,$ic$ s$o%l! be ventilate! be(ore t$e -egional 2rial Co%rt o(
ManilaA ;b< t$e s%b9ect b%il!ings ,ere con!emne! an! or!ere!
remove! a(ter it ,as establis$e! t$at t$e' $a! s%((ere! (rom
!e(ects or !eterioration t$ereb' &osing &erils to t$e lives an! limbs
not onl' o( &etitioners b%t also to t$e &%blic in generalA ;c< t$e
&o,er to con!emn b%il!ings an! str%ct%res in t$e Cit' o( Manila
(alls ,it$in t$e e4cl%sive !omain o( t$e Cit' 3ngineer &%rs%ant to
)ections /7C an! /7G o( its Com&ilation o( Or!inances ;also
-evise! Or!inances 1G55<A ;!< t$e &o,er to con!emn an! remove
b%il!ings an! str%ct%res is an e4ercise o( t$e &olice &o,er grante!
t$e Cit' o( Manila to &romote &%blic sa(et'A an! ;e< a!ministrative
!ecisions (alling ,it$in t$e e4ec%tive 9%ris!iction cannot be set
asi!e b' co%rts o( 9%stice e4ce&t on &roo( o( grave ab%se o(
!iscretion (ra%! or error o( la,.
Man%el @' an! )ons *nc: &etition is &remat%re
%nreasonable an! !eserves no consi!eration as &etitioners $ave
not e4$a%ste! rea!il'Davailable a!ministrative reme!ies an! t$at
t$e vali!it' o( t$e .%estione! con!emnation an! !emolition or!ers
entails .%estions o( (acts not entertainable in t$is &etition. *t
alleges t$at t$e con!emnation or!ers ,ere not imme!iatel'
e4ec%tor' as t$e (in!ing o( t$e Cit' 3ngineer?B%il!ing O((icial is still
s%b9ect to t$e a&&roval o( t$e Ma'or &er )ection /7G o( t$e
Com&ilation o( Or!inances o( t$e Cit' o( Manila. Moreover %n!er
)ection C.1 -%le K** o( t$e *m&lementing -%les an! -eg%lations o(
=.D. No. 158G t$e o,ner o( a b%il!ing ma' a&&eal to t$e )ecretar'
o( =%blic 6or+s an! Comm%nications ,$ose !ecision is (inal t$e
(in!ing or !eclaration o( t$e B%il!ing O((icial an! as+ t$at a reD
ins&ection or reDinvestigation o( t$e b%il!ing or str%ct%re be ma!eA
(or not availing o( t$is reme!' &etitioners (aile! to e4$a%st
a!ministrative reme!ies.
*ss%e: 6ON t$e ma'or an! cit' engineer committe! grave ab%se o(
!iscretion amo%nting to lac+ o( 9%ris!iction in iss%ing t$e
con!emnation or!ers. NO.
*t is &atentl' obvio%s t$at &etitioners $ave no vali!
grievance (or t$e reme!' o( certiorari %n!er -%le GC
o( t$e -%les o( Co%rt to be available to t$em. *t is
e4&licitl' clear (rom )ection 1 o( -%le GC o( t$e
-%les o( Co%rt t$at (or certiorari to be available: ;a<
a trib%nal boar! or o((ice e4ercising 9%!icial (%nction
acte! ,it$o%t or in e4cess o( its or $is 9%ris!iction or
,it$ grave ab%se o( !iscretion an! ;b< t$at t$ere is
no a&&eal nor an' &lain s&ee!' an! a!e.%ate
reme!' in t$e or!inar' co%rse o( la,. =etitioners
(aile! to s$o, t$e &resence o( bot$ elements.
2$e &o,er to con!emn b%il!ings an! str%ct%res in
t$e Cit' o( Manila (alls ,it$in t$e e4cl%sive
9%ris!iction o( t$e Cit' 3ngineer ,$o is at t$e same
time t$e B%il!ing O((icial ;)ec. /5G =.D. 158G<.
)ections /7C an! /7G o( t$e Com&ilation o(
Or!inances o( t$e Cit' o( Manila ;also -evise!
Or!inances 1G55< &rovi!e: ")3C. /7C. Deterioration
an! De(ects. #ll b%il!ings or &arts o( b%il!ings
,$ic$ s$o, !e(ects in an' essential &arts s$all be
re&aire! an! &%t in sa(e con!ition at once or i( t$e
!eterioration be greater t$an (i(t' &er cent%m o( t$e
val%e o( t$e b%il!ing as estimate! b' t$e cit'
engineer t$e' s$all be remove!.
)3C. /7G. Con!emnation =rocee!ings. 6$enever in
t$e 9%!gment o( t$e Cit' 3ngineer an' b%il!ing or
&ortion o( b%il!ing $as been !amage! b' an' ca%se
to s%c$ an e4tent as to be !angero%s (or %se $e
ma' con!emn t$e same an! s$all imme!iatel'
//
noti(' t$e o,ner an! t$e Ma'or o( $is action. *( t$e
o,ner or $is agent be not ,illing to abi!e b' t$%s
or!er o( con!emnation $e ma' ma+e (ormal
ob9ection ,it$in t$e &erio! o( seven !a's (ollo,ing
s%c$ noti(ication. 2$e Ma'or s$all $ear t$e o,ner or
$is agent an! $is e4&erts an! also t$e cit' engineer
!eci!ing t$e case on t$e evi!ence &resente!. *( t$e
Ma'or con(irms t$e action o( t$e cit' engineer t$e
o,ner or $is agent s$all imme!iatel' &rocee! to
remove t$e b%il!ing ,it$in (i(teen !a's (rom t$e
!ate on ,$ic$ $e ,as noti(ie! o( s%c$ (inal action.
)$o%l! t$e o,ner or $is agent not com&l' ,it$ t$e
!ecision o( t$e Ma'or t$e b%il!ing s$all be remove!
at $is e4&ense an! t$e cit' ,ill &rocee! to recover
against $im (or t$e amo%nt e4&en!e!."
)ection /1C o( =.D. 158G ot$er,ise +no,n as t$e
National B%il!ing Co!e also states t$e a%t$orit' o(
t$e B%il!ing O((icial ,it$ res&ect to !angero%s
b%il!ings to ,it: "6$en an' b%il!ing or str%ct%re is
(o%n! or !eclare! to be !angero%s or r%ino%s t$e
B%il!ing o((icial s$all or!er its re&air vacation or
!emolition !e&en!ing %&on t$e !egree o( !anger to
li(e $ealt$ or sa(et'. 2$is is ,it$o%t &re9%!ice to
(%rt$er action t$at ma' be ta+en %n!er t$e
&rovisions o( #rticles 08/ an! G80 to 757 o( t$e Civil
Co!e o( t$e =$ili&&ines."
From t$e abovementione! &rovisions it is
%n.%estionable t$at t$e B%il!ing O((icial $as t$e
a%t$orit' to or!er t$e con!emnation an! !emolition
o( b%il!ings ,$ic$ are (o%n! to be in a !angero%s or
r%ino%s con!ition. *t is also clear (rom t$e
Com&ilation o( Or!inances o( t$e Cit' o( Manila t$at
t$e Ma'or $as t$e &o,er to con(irm or !en' t$e
action ta+en b' t$e B%il!ing O((icial ,it$ res&ect to
t$e !angero%s or r%ino%s b%il!ings.
Cit' 3ngineer an! B%il!ing O((icial -om%lo M. !el
-osario can t$ere(ore vali!l' iss%e t$e .%estione!
con!emnation an! !emolition or!ers. 2$is is also
tr%e ,it$ t$e res&on!ent Ma'or ,$o can a&&rove or
!en' t$e con!emnation or!ers as &rovi!e! in
)ection /7G o( t$e Com&ilation o( Or!inances o( t$e
Cit' o( Manila.
*t is a settle! !octrine t$at t$ere is grave ab%se o(
!iscretion amo%nting to lac+ o( 9%ris!iction ",$en
t$ere is a ca&ricio%s an! ,$imsical e4ercise o(
9%!gment as is e.%ivalent to lac+ o( 9%ris!iction
s%c$ as ,$ere t$e &o,er is e4ercise! in an arbitrar'
or !es&otic manner b' reason o( &assion or &ersonal
$ostilit' an! it m%st be so &atent an! gross so as to
amo%nt to an evasion o( &ositive !%t' or to a virt%al
re(%sal to &er(orm t$e !%t' en9oine! or to act at all
in contem&lation o( la,."
6e (in! no grave ab%se o( !iscretion on t$e &art o(
t$e res&on!ent Cit' 3ngineer beca%se t$e or!ers
,ere ma!e onl' a(ter t$oro%g$ oc%lar ins&ections
,ere con!%cte! b' t$e Cit'Hs B%il!ing *ns&ectors.
2$e res%lts o( t$e ins&ections ,ere set (ort$ in a
memoran!%m !ate! 1G November 188/ ,$ere it
,as s$o,n t$at all t$e b%il!ings $a! arc$itect%ral
str%ct%ral sanitar' &l%mbing an! electrical !e(ects
o( %& to 85Y.
2$e Ma'orHs act o( a&&roving t$e con!emnation
or!ers ,as li+e,ise !one in accor!ance ,it$ la,.
2$e &rotest ma!e b' &etitioners ,as s%bmitte! onl'
on // Febr%ar' 1881 or t$ree mont$s a(ter t$e
notices o( con!emnation ,ere iss%e! an! clearl'
be'on! t$e seven !a's &rescribe! %n!er )ection
/7G o( t$e Com&ilation o( Or!inances o( t$e Cit' o(
Manila.
Moreover a&&eal ,as li+e,ise available to
&etitioners. 2$e *m&lementing -%les an!
-eg%lations &rom%lgate! b' t$e t$en Ministr' o(
=%blic 6or+s to im&lement =.D. No. 158G %n!er t$e
title #batement?Demolition o( B%il!ings &rovi!e: "C.
=roce!%re (or Demolition o( B%il!ings. 2$e (ollo,ing
ste&s s$all be observe! in t$e abatement?!emolition
o( b%il!ings %n!er t$is -%le: C.1. 2$ere m%st be a
(in!ing or !eclaration b' t$e B%il!ing O((icial t$at
t$e b%il!ing or str%ct%re is a n%isance r%ino%s or
!angero%s . . .C.1. 6it$in t$e (i(teenD!a' &erio! t$e
o,ner ma' i( $e so !esires a&&eal to t$e )ecretar'
t$e (in!ing or !eclaration o( t$e B%il!ing O((icial an!
as+ t$at a reDins&ection or reDinvestigation o( t$e
/1
b%il!ing or str%ct%re be ma!e . . .C.G. 2$e !ecision
o( t$e )ecretar' on t$e a&&eal s$all be (inal."
Certiorari ,ill not be t$en beca%se &etitioners (aile!
to e4$a%st all t$e a!ministrative reme!ies. 2$is
Co%rt $as long %&$el! t$e !octrine o( e4$a%stion o(
a!ministrative reme!ies beca%se it rests on t$e
ass%m&tion t$at t$e a!ministrative bo!' boar! or
o((icer i( given t$e c$ance to correct its?$is mista+e
or error ma' amen! its?$is !ecision on a given
matter. 6$ere t$e enabling stat%te in!icates a
&roce!%re (or a!ministrative revie, an! &rovi!es a
s'stem o( a!ministrative a&&eal or reconsi!eration
t$e co%rts (or reasons o( la, comit' an!
convenience ,ill not entertain a case %nless t$e
available a!ministrative reme!ies $ave been
resorte! to an! t$e a&&ro&riate a%t$orities $ave
been given o&&ort%nit' to act an! correct t$e errors
committe! in t$e a!ministrative (or%m. 2$ere are o(
co%rse e4ce&tions to t$is r%le b%t none is available
to &etitioners.

Bina# v. *omingo
Facts: -esol%tion G5 con(irming t$e ongoing b%rial assistance
&rogram initiate! b' t$e ma'or>s o((ice. @n!er t$is &rogram
bereave! (amilies ,$ose gross (amil' income !oes not e4cee!
/+?mont$ ,ill receive a C55&$& cas$ relie( to be ta+en o%t o(
%na&&ro&riate! available (%n!s e4isting in t$e m%nici&al treas%r'.
2$e Metro Manila Commission a&&rove! -esol%tion G5. 2$erea(ter
t$e m%nici&al secretar' certi(ie! a !isb%rsement o( =055555 (or
t$e im&lementation o( t$e B%rial #ssistance =rogram. - G5 ,as
re(erre! to t$e Commission on #%!it (or its e4&ecte! allo,ance in
a%!it. Base! on its &reliminar' (in!ings CO# !isa&&rove! - G5 an!
!isallo,e! in a%!it t$e !isb%rsement o( (%n!s (or t$e
im&lementation t$ereo(. 2$e &rogram ,as sta'e! b' CO# Decision
No. 11C8.
*ss%es:
1. 6ON - G5 is a vali! e4ercise o( &olice &o,er %n!er t$e
general ,el(are cla%se. :3).
=olice &o,er is in$erent in t$e state b%t not in
m%nici&al cor&orations. Be(ore a m%nici&al
cor&oration ma' e4ercise s%c$ &o,er t$ere m%st be
a vali! !elegation o( s%c$ &o,er b' t$e legislat%re
,$ic$ is t$e re&ositor' o( t$e in$erent &o,ers o( t$e
)tate. # vali! !elegation o( &olice &o,er ma' arise
(rom e4&ress !elegation or be in(erre! (rom t$e
mere (act o( t$e creation o( t$e m%nici&al
cor&orationA an! as a general r%le m%nici&al
cor&orations ma' e4ercise &olice &o,ers ,it$in t$e
(air intent an! &%r&ose o( t$eir creation ,$ic$ are
reasonabl' &ro&er to give e((ect to t$e &o,ers
e4&ressl' grante! an! stat%tes con(erring &o,ers
on &%blic cor&orations $ave been constr%e! as
em&o,ering t$em to !o t$e t$ings essential to t$e
en9o'ment o( li(e an! !esirable (or t$e sa(et' o( t$e
&eo&le.
M%nici&al governments e4ercise t$is &o,er %n!er
t$e general ,el(are cla%se: a%t$orit' to "enact s%c$
or!inances an! iss%e s%c$ reg%lations as ma' be
necessar' to carr' o%t an! !isc$arge t$e
res&onsibilities con(erre! %&on it b' la, an! s%c$
as s$all be necessar' an! &ro&er to &rovi!e (or t$e
$ealt$ sa(et' com(ort an! convenience maintain
&eace an! or!er im&rove &%blic morals &romote
t$e &ros&erit' an! general ,el(are o( t$e
m%nici&alit' an! t$e in$abitants t$ereo( an! ins%re
t$e &rotection o( &ro&ert' t$erein."
)ec 7 o( B= 117: ever' LG@ s$all e4ercise t$e
&o,ers e4&ressl' grante! t$ose necessaril' im&lie!
t$ere(rom as ,ell as &o,ers necessar' an! &ro&er
(or governance s%c$ as to &romote $ealt$ an!
sa(et' en$ance &ros&erit' im&rove morals an!
maintain &eace an! or!er in t$e LG@ an! &reserve
t$e com(ort an! convenience o( t$e in$abitants
t$erein."
/0
=olice &o,er: &o,er to &rescribe reg%lations to
&romote t$e $ealt$ morals &eace e!%cation goo!
or!er or sa(et' an! general ,el(are o( t$e &eo&le. *t
is t$e most essential insistent an! illimitable o(
&o,ersA greatest an! most &o,er(%l attrib%te o( t$e
governmentA elastic an! m%st be res&onsive to
vario%s social con!itions.
CO#: t$ere is no &erce&tible connection or relation
bet,een t$e ob9ective so%g$t to be attaine! %n!er
- G5 an! t$e allege! &%blic sa(et' general ,el(are.
etc. o( t$e in$abitants o( Ma+ati
#&&arentl' CO# tries to reD!e(ine t$e sco&e o(
&olice &o,er b' circ%mscribing its e4ercise to
"&%blic sa(et' general ,el(are etc. o( t$e
in$abitants o( Ma+ati ."
=olice &o,er o( a m%nici&al cor&oration: broa! an!
$as been sai! to be commens%rate ,it$ b%t not to
e4cee! t$e !%t' to &rovi!e (or t$e real nee!s o( t$e
&eo&le in t$eir $ealt$ sa(et' com(ort an!
convenience as consistentl' as ma' be ,it$ &rivate
rig$ts. *t e4ten!s to all t$e great &%blic nee!s an!
in a broa! sense incl%!es all legislation an! almost
ever' (%nction o( t$e m%nici&al government. *t
covers a ,i!e sco&e o( s%b9ects an! ,$ile it is
es&eciall' occ%&ie! ,it$ ,$atever a((ects t$e
&eace sec%rit' $ealt$ morals an! general ,el(are
o( t$e comm%nit' it is not limite! t$ereto b%t is
broa!ene! to !eal ,it$ con!itions ,$ic$ e4ists so as
to bring o%t o( t$em t$e greatest ,el(are o( t$e
&eo&le b' &romoting &%blic convenience or general
&ros&erit' an! to ever't$ing ,ort$,$ile (or t$e
&reservation o( com(ort o( t$e in$abitants o( t$e
cor&oration. 2$%s it is !eeme! ina!visable to
attem&t to (rame an' !e(inition ,$ic$ s$all
absol%tel' in!icate t$e limits o( &olice &o,er.
CO# is not att%ne! to t$e c$anging o( t$e times.
=%blic &%r&ose is not %nconstit%tional merel'
beca%se it inci!entall' bene(its a limite! n%mber o(
&ersons. O)G: "t$e !ri(t is to,ar!s social ,el(are
legislation geare! to,ar!s state &olicies to &rovi!e
a!e.%ate social services ;)ection 8 #rt. **
Constit%tion< t$e &romotion o( t$e general ,el(are
;)ection C *bi!< social 9%stice ;)ection 15 *bi!< as
,ell as $%man !ignit' an! res&ect (or $%man rig$ts.
;)ection 11 *bi!."
2$e care (or t$e &oor is generall' recogniBe! as a
&%blic !%t'. 2$e s%&&ort (or t$e &oor $as long been
an acce&te! e4ercise o( &olice &o,er in t$e
&romotion o( t$e common goo!.
2$ere is no violation o( t$e e.%al &rotection cla%se
in classi('ing &a%&ers as s%b9ect o( legislation.
=a%&ers ma' be reasonabl' classi(ie!. Di((erent
gro%&s ma' receive var'ing treatment. =recio%s to
t$e $earts o( o%r legislators !o,n to o%r local
co%ncilors is t$e ,el(are o( t$e &a%&ers. 2$%s
stat%tes $ave been &asse! giving rig$ts an!
bene(its to t$e !isable! emanci&ating t$e tenantD
(armer (rom t$e bon!age o( t$e soil $o%sing t$e
%rban &oor etc.
2$e resol%tion is a &aragon o( t$e contin%ing
&rogram o( o%r government to,ar!s social 9%stice.
2$e B%rial #ssistance =rogram is a relie( o(
&a%&erism t$o%g$ not com&lete. 2$e loss o( a
member o( a (amil' is a &ain(%l e4&erience an! it is
more &ain(%l (or t$e &oor to be (inanciall' b%r!ene!
b' s%c$ !eat$. -esol%tion No. G5 vivi(ies t$e ver'
,or!s o( t$e late =resi!ent -amon Magsa'sa'
Ht$ose ,$o $ave less in li(e s$o%l! $ave more in
la,."
'atel v. Municipalit# o! $irac
Facts: Base! on com&laints receive! b' t$e resi!ents o( barrio )ta.
3lena against t$e !ist%rbance ca%se! b' t$e o&eration o( t$e abaca
bailing mac$ine insi!e 2atel>s ,are$o%se -esol%tion /81 ,as
enacte! b' t$e M%nici&al Co%ncil o( Kirac !eclaring 2atel>s
,are$o%se a &%blic n%isance ,it$in t$e &%rvie, o( #rticle G80 o(
t$e Civil Co!e an! !irecting t$e &etitioner to remove an! trans(er
sai! ,are$o%se to a more s%itable &lace ,it$in t,o mont$s (rom
recei&t o( t$e sai! resol%tion. 2$e m%nici&al o((icials conten! t$at
&etitionerHs ,are$o%se ,as constr%cte! in violation o( Or!inance
11 &ro$ibiting t$e constr%ction o( ,are$o%ses near a bloc+ o(
$o%ses eit$er in t$e &oblacion or barrios ,it$o%t maintaining t$e
necessar' !istance o( /55 meters (rom sai! bloc+ o( $o%ses to
avoi! loss o( lives an! &ro&erties b' acci!ental (ire. 2atel conten!s
/C
t$at sai! or!inance is %nconstit%tional contrar' to t$e !%e &rocess
an! e.%al &rotection cla%se o( t$e Constit%tion an! n%ll an! voi!
(or not $aving been &asse! in accor!ance ,it$ la,.
*ss%e: 1. 6ON Or!inance No. 11 is %nconstit%tional. NO
Or!inance 11 ,as &asse! b' t$e M%nici&al Co%ncil
o( Kirac in t$e e4ercise o( its &olice &o,er. *t is a
settle! &rinci&le o( la, t$at m%nici&al cor&orations
are agencies o( t$e )tate (or t$e &romotion an!
maintenance o( local sel(Dgovernment an! as s%c$
are en!o,e! ,it$ t$e &olice &o,ers in or!er to
e((ectivel' accom&lis$ an! carr' o%t t$e !eclare!
ob9ects o( t$eir creation.
*ts a%t$orit' emanates (rom t$e general ,el(are
cla%se %n!er t$e #!ministrative Co!e ,$ic$ rea!s:
2$e m%nici&al co%ncil s$all enact s%c$ or!inances
an! ma+e s%c$ reg%lations not re&%gnant to la, as
ma' be necessar' to carr' into e((ect an! !isc$arge
t$e &o,ers an! !%ties con(erre! %&on it b' la, an!
s%c$ as s$all seem necessar' an! &ro&er to &rovi!e
(or t$e $ealt$ an! sa(et' &romote t$e &ros&erit'
im&rove t$e morals &eace goo! or!er com(ort an!
convenience o( t$e m%nici&alit' an! t$e in$abitants
t$ereo( an! (or t$e &rotection o( &ro&ert' t$erein.
For an or!inance to be vali! it m%st not onl' be
,it$in t$e cor&orate &o,ers o( t$e m%nici&alit' to
enact b%t m%st also be &asse! accor!ing to t$e
&roce!%re &rescribe! b' la,.
2$ese &rinci&les re.%ire t$at a m%nici&al or!inance
;1< m%st not contravene t$e Constit%tion or an'
stat%te
;/< m%st not be %n(air or o&&ressive
;1< m%st not be &artial or !iscriminator'
;0< m%st not &ro$ibit b%t ma' reg%late tra!e
;C< m%st be general an! consistent ,it$ &%blic &olic'
an!
;G< m%st not be %nreasonable.
Or!inance 11 meets t$ese criteria.
*n s&ite o( its (ract%re! s'nta4 ,$at is reg%late! b'
t$e or!inance is t$e constr%ction o( ,are$o%ses
,$erein in(lammable materials are store! ,$ere
s%c$ ,are$o%ses are locate! at a !istance o( /55
meters (rom a bloc+ o( $o%ses an! not t$e
constr%ction &er se o( a ,are$o%se. 2$e &%r&ose is
to avoi! t$e loss o( li(e an! &ro&ert' in case o( (ire
,$ic$ is one o( t$e &rimor!ial obligation o( t$e
government.
2$e ob9ections inter&ose! b' t$e &etitioner to t$e
vali!it' o( t$e or!inance $ave not been
s%bstantiate!. *ts &%r&ose is ,ell ,it$in t$e
ob9ectives o( so%n! government. No %n!%e restraint
is &lace! %&on t$e &etitioner or (or an'bo!' to
engage in tra!e b%t merel' a &ro$ibition (rom
storing in(lammable &ro!%cts in t$e ,are$o%se
beca%se o( t$e !anger o( (ire to t$e lives an!
&ro&erties o( t$e &eo&le resi!ing in t$e vicinit'. #s
(ar as &%blic &olic' is concerne! t$ere can be no
better &olic' t$an ,$at $as been conceive! b' t$e
m%nici&al government.

'amin v. CA
Facts: 2$e m%nici&alit' o( D%mingag (ile ! a case (or t$e e9ectment
o( Me!ina an! -osellon. #ccor!ing to t$e m%nici&alit' it is t$e
o,ner o( a &arcel o( resi!ential lan! locate! at =oblacion
D%mingag Zamboanga !el )%r ,it$ an area o( C880 s.%are
meters more or lessA t$at t$e &arcel o( lan! ,as reserve! (or &%blic
&laBa %n!er == 1GC an! t$at t$e inc%mbenc' o( t$e late Ma'or
*si!oro 3. -eal )r. or in 18C8 t$e m%nici&alit' lease! an #rea o(
11C5 s.%are meters to MP- s%b9ect to t$e con!ition t$at t$e'
s$o%l! vacate t$e &lace in case it is nee!e! (or &%blic &%r&osesA
t$at t$e !e(en!ants religio%sl' &ai! t$e rentals %ntil 18G7. MP-
$o,ever re(%se! to &a' t$e rentals as ,ell as vacate t$e area.
Hence !es&ite t$e national government>s allotment (or t$e
constr%ction o( a m%nici&al g'mnasi%m ,it$in t$e &%blic &laBa
s%c$ constr%ction ,$ic$ ,as alrea!' starte! co%l! not contin%e
beca%se o( t$e &resence o( t$e b%il!ings constr%cte! b' t$e
!e(en!ants. #ccor!ing to t$e m%nici&alit' t$e a&&ro&riation (or t$e
constr%ction o( t$e g'mnasi%m mig$t be reverte! bac+ to t$e
national government ,$ic$ ,o%l! res%lt to "irre&arable !amage
in9%r' an! &re9%!ice" to t$e m%nici&alit' an! its &eo&le ,$o are
e4&ecte! to !erive bene(it (rom t$e accom&lis$ment o( t$e &ro9ect.
-2C: 7%!ge 2amin iss%e! an or!er setting t$e &reliminar' $earing
(or t$e iss%ance o( a ,rit o( &reliminar' man!ator' in9%nction
an!?or ,rit o( &ossession an! instea! o( (iling an ans,er t$e
/G
res&on!ents (ile! an M2D alleging t$e lac+ o( 9%ris!iction o( t$e 2C
since t$e com&laint is (or illegal !etainer ,$ic$ is ,it$in t$e original
9%ris!iction o( t$e m%nici&al co%rt an! t$e &en!enc' o( a ca!astral
case bet,een t$e &arties over t$e o,ners$i& o( t$e same &arcel o(
lan!. 2amin !enie! t$e M2D an! grante! t$e m%nici&alit'Hs motion
(or a ,rit o( &ossession ",it$ t$e ancillar' ,rit o( !emolition to
&lace in &ossession t$e &lainti(( on t$e lan! s%b9ect o( t$is case to
t$e en! t$at t$e &%blic constr%ction t$ereon ,ill not be
9eo&ar!iBe!." #ccor!ing to 2amin t$e m%nici&alit' alleges t$at
MP- are claiming o,ners$i& over t$e lan! ,$ic$ ,as &revio%sl'
rente! to t$em. 2$is action is t$ere(ore an accion !e
reivin!icacion a real action ,it$in t$e 9%ris!iction o( t$is co%rt. #s
t$e com&laint is (or recover' o( o,ners$i& o( t$e lan! not to
en(orce t$e contract t$e )tat%te o( Fra%! !oes not a&&l'. 2$e lan!
s%b9ect o( t$is case is covere! b' =D 1GC ,it$!ra,ing t$is lan!
(rom sale o( settlement an! reserving t$e same (or sc$ool site
&%r&oses %n!er t$e a!ministration o( t$e Director o( =%blic )c$ool
an! &%blic &laBa %n!er t$e a!ministration o( t$e M%nici&alit' o(
D%mingag t$ere(ore t$e Ca!astral co%rt $as no 9%ris!iction over
t$e lan! involve! in t$is case. 'amin 3usti!ie his granting the
motion !or a "rit o! possession "ith the ancillar# "rit o!
emolition b# appl#ing the rule an eminent omain in
analog# in that uner this Rule the complainant is given the
right to the "rit o! possession in orer that public
construction an pro3ects "ill not be ela#e. #ccor!ing to
$im t$e necessit' o( a ,rit o( &ossession is greater in t$e instant
case consi!ering t$at t$e &arcel o( lan! is covere! b' a == an! t$e
onDgoing constr%ction t$ereon is being en!angere! to be le(t
%n(inis$e! on acco%nt o( t$e b%il!ings stan!ing on t$e &arcel o(
lan! beca%se t$e a&&ro&riation (or t$e constr%ction mig$t be
reverte! bac+ to t$e national treas%r'. MP- (ile! an omnib%s M-
,it$ motion to set asi!e or!er an! to .%as$ ,rit o( &ossession an!
!emolition b%t t$is ,as !enie!. 2$e m%nici&alit' im&lemente! t$e
,rit o( &ossession an! ancillar' ,rit o( !emolition iss%e! b' t$e
&etitioner 7%!ge res%lting in t$e !is&ossession o( t$e &rivate
res&on!ents (rom t$e &arcel o( lan! an! t$e !emolition o(
str%ct%res an! b%il!ings t$ereon o,ne! b' t$e res&on!ents.
MP->s ans,er: 2$e &arcel o( lan! $as been o,ne! occ%&ie! an!
&ossess b' res&on!ent Kicente Me!ina since 1807 ,$en $e bo%g$t
t$e s%b9ect &arcel (rom a )%banan nativeA t$at t$e ot$er
res&on!ent Fort%nata -osellon lease! (rom Me!ina a &ortion o( t$e
&arcel o( lan!A t$at t$e res&on!ents ,ere never lessees o( t$e
&etitioner m%nici&alit'A t$at =roclamation 1GC iss%e! on Marc$ 1C
18G8 recogniBe! "&rivate rig$ts"A an! t$at a case is &en!ing be(ore
t$e Ca!astral co%rt bet,een res&on!ent Me!ina an! &etitioner
m%nici&alit' as regar!s t$e o,ners$i& o( t$e s%b9ect &arcel o( lan!.
Be(ore t$e &etitioner 7%!ge co%l! (%rt$er act on t$e case t$e
&rivate res&on!ents (ile! a &etition (or certiorari ,it$ t$e C#
.%estioning t$e or!ers o( t$e &etitioner 7%!ge. =etition ,as given
!%e co%rse an! a 2-O ,as iss%e! en9oining t$e &etitioner 7%!ge
(rom &rocee!ing ,it$ t$e $earing o( t$e case an! (rom en(orcing
t$e or!ers.
C#: -2C committe! an error ,$en it a&&lie! b' analog' t$e r%le on
eminent !omain to 9%sti(' t$e iss%ance o( t$e ,rit o( &ossession
an! ,rit o( !emolition. 2$e a&&ellate co%rt &ointe! o%t t$at %n!er
t$is r%le: ;i< 2$ere is clear stat%tor' a%t$orit' (or t$e ta+ing o(
&ossession b' t$e government an! ;ii< 2$e a%t$orit' is &remise! on
t$e government !e&ositing t$e val%e o( t$e lan! to be ta+en. *n t$e
case at bar t$ere is neit$er stat%tor' a%t$orit' (or t$e trial co%rtHs
action nor bon! given to com&ensate t$e &etitioners (or t$e
!e&rivation o( t$eir &ossession an! t$e !estr%ction o( t$eir $o%ses
i( it t%rns o%t t$at t$e lan! belongs to t$em. For t$is reason ,e
t$in+ t$e trial co%rts or!er is arbitrar' an! voi!. For t$e (act is t$at
&etitioners claim o,ners$i& o( t$e lan! in .%estion an! %ntil t$at
.%estion is resolve! eit$er in t$e case &en!ing be(ore t$e
res&on!ent 9%!ge or in t$e ca!astral &rocee!ing it ,o%l! be %n9%st
to !e&rive &etitioners o( its &ossession.
*ss%e:
1. 6ON t$e allegations in t$e com&laint constit%te a ca%se o(
action (or abatement o( &%blic n%isance %n!er #rticle G80 o(
t$e Civil Co!e.
#&&l'ing t$ese criteria ,e agree ,it$ t$e
&etitioners t$at t$e com&laint alleges (act%al
circ%mstances o( a com&laint (or abatement o(
&%blic n%isance.
#rt. G80 CC # n%isance is an' act omission
establis$ment b%siness con!ition o( &ro&ert' or
an't$ing else ,$ic$: ;C< Hin!ers or im&airs t$e %se
o( &ro&ert'.
#rt. G8C CC N%isance is eit$er &%blic or &rivate. #
&%blic n%isance a((ects a comm%nit' or
neig$bor$oo! or an' consi!erable n%mber o(
&ersons alt$o%g$ t$e e4tent o( t$e anno'ance
/7
!anger or !amage %&on in!ivi!%als ma' be %ne.%al.
. .
2$%s t$e com&laint states: t$at &etitioner
m%nici&alit' is t$e o,ner o( a &arcel o( lan! covere!
b' =resi!ential =roclamation No 1GC ,$ic$ is
reserve! (or a &%blic &laBaA t$at t$e &rivate
res&on!ents b' virt%e o( a contract o( lease entere!
into b' t$e (ormer ma'or occ%&ie! a &ortion o( t$e
&arcel o( lan! constr%cting b%il!ings t$ereonA t$at
t$e &rivate res&on!ents re(%se! to vacate t$e
&remises !es&ite !eman!sA t$at t$e m%nici&alit' is
constr%cting a m%nici&al g'mnasi%m in t$e area
(inance! b' a&&ro&riations &rovi!e! b' t$e national
governmentA an! t$at t$e a&&ro&riations are in
!anger o( being reverte! to t$e national treas%r'
beca%se t$e constr%ction $a! to be sto&&e! in vie,
o( t$e re(%sal o( t$e &rivate res&on!ents to vacate
t$e area.
1. 6ON t$e m%nici&alit' is entitle! to a ,rit o( &ossession an!
a ,rit o( !emolition even be(ore t$e trial o( t$e case starts.
#rticle G88 o( t$e Civil Co!e &rovi!es (or t$e
(ollo,ing reme!ies against a &%blic n%isance:
;1< # &rosec%tion %n!er t$e =enal Co!e or an'
local or!inanceA or;/< # civil actionA or ;1<
#batement ,it$o%t 9%!icial &rocee!ings.
2$e &etitioner m%nici&alit' $a! t$ree
reme!ies (rom ,$ic$ to select its ca%se o(
action. *t c$ose to (ile a civil action (or t$e
recover' o( &ossession o( t$e &arcel o( lan!
occ%&ie! b' t$e &rivate res&on!ents.
Obvio%sl' &etitioner m%nici&alit' ,as a,are
t$at %n!er t$e t$en LGC ;B.=. Blg. 117< t$e
)angg%niang Ba'an $as to (irst &ass an
or!inance be(ore t$e m%nici&alit' ma'
s%mmaril' abate a &%blic n%isance. ;)ec.
108;B< ;ee<.
On t$e &remise t$at t$e &arcel o( lan! (orms
&art o( a &%blic &laBa t$e &etitioners no,
conten! t$at t$e 7%!ge ,as 9%sti(ie! in iss%ing
t$e ,rit o( &ossession an! ,rit o( !emolition.
# &%blic &laBa is o%tsi!e t$e commerce o(
man an! constr%ctions t$ereon can be abate!
s%mmaril' b' t$e m%nici&alit' citing a case:
34actl' in &oint is 3s&irit% v. M%nici&al Co%ncil
o( =oBorr%bio ;15/ =$il. 8G8D875< ,$ere t$e
)%&reme Co%rt !eclare!: 2$ere is absol%tel'
no .%estion t$at t$e to,n &laBa cannot be
%se! (or t$e constr%ction o( mar+et stalls
s&eciall' o( resi!ences an! t$at s%c$
str%ct%res constit%te a n%isance s%b9ect to
abatement accor!ing to la,. 2o,n &laBas are
&ro&erties o( &%blic !ominion to be !evote!
to &%blic %se an! to be ma!e available to t$e
&%blic in general. 2$e' are o%tsi!e t$e
commerce o( man an! cannot be !is&ose! o(
or even lease! b' t$e m%nici&alit' to &rivate
&arties.
#&&l'ing t$is ,ellDsettle! !octrine ,e r%le
t$at &etitioners $a! no rig$t in t$e (irst &lace
to occ%&' t$e !is&%te! &remises an! cannot
insist in remaining t$ere no, on t$e strengt$
o( t$eir allege! lease contracts. 2$e' s$o%l!
$ave realiBe! an! acce&te! t$is earlier
consi!ering t$at even be(ore Civil Case No.
/505 ,as !eci!e! t$e m%nici&al co%ncil o(
)an Fernan!o $a! alrea!' a!o&te! -esol%tion
No. /8 series o( 18G0 !eclaring t$is area as
t$e &ar+ing &lace an! &%blic &laBa o( t$e
m%nici&alit'.
*t is t$e !ecision in Civil Case No. /505 an!
t$e sai! resol%tion o( t$e m%nici&al co%ncil o(
)an Fernan!o t$at res&on!ent Macalino ,as
see+ing to en(orce ,$en $e or!ere! t$e
!emolition o( t$e stalls constr%cte! in t$e
!is&%te! area. #s o((icerDinDc$arge o( t$e
o((ice o( t$e ma'or $e $a! t$e !%t' to clear
t$e area an! restore it to its inten!e! %se as a
&ar+ing &lace an! &%blic &laBa o( t$e
m%nici&alit' o( )an Fernan!o con(ormabl' to
t$e a(orementione! or!ers (rom t$e co%rt an!
t$e co%ncil. *t is t$ere(ore not correct to sa'
t$at $e $a! acte! ,it$o%t a%t$orit' or ta+en
t$e la, into $is $an!s in iss%ing $is or!er.
/8
2$e Co%rt observes t$at even ,it$o%t s%c$
investigatiom an! recommen!ation t$e
res&on!ent ma'or ,as 9%sti(ie! in or!ering
t$e area cleare! on t$e strengt$ alone o( its
stat%s as a &%blic &laBa as !eclare! b' t$e
9%!icial an! legislative a%t$orities. .
*( t$ere(ore t$e allegations in t$e com&laint
are tr%e an! t$at t$e &arcel o( lan! being
occ%&ie! b' t$e &rivate res&on!ents is in!ee!
a &%blic &laBa t$en t$e ,rit o( &ossession an!
,rit o( !emolition ,o%l! $ave been 9%sti(ie!.
*n (act %n!er s%c$ circ%mstances t$ere
,o%l! $ave been no nee! (or a ,rit o(
&ossession in (avor o( t$e &etitioner
m%nici&alit' since t$e &rivate res&on!entsH
occ%&ation over t$e s%b9ect &arcel o( lan! can
not be recogniBe! b' an' la,. # ,rit o(
!emolition ,o%l! $ave been s%((icient to e9ect
t$e &rivate res&on!ents.
Ho,ever not onl' !i! t$e m%nici&alit' avoi!
t$e %se o( abatement ,it$o%t 9%!icial
&rocee!ings b%t t$e stat%s o( t$e s%b9ect
&arcel o( lan! $as 'et to be !eci!e!.
6e $ave to consi!er t$e (act t$at
=roclamation No. 1GC !ate! Marc$ 1C 18G8
recogniBes &rivate rig$ts ,$ic$ ma' $ave
been veste! on ot$er &ersons to ,it: B: 2H3
=-3)*D3N2 OF 2H3 =H*L*==*N3)
=-OCL#M#2*ON NO. 1GC -3)3-K*NG FO-
)CHOOL )*23 =@BL*C =L#Z# #ND
=L#:G-O@ND =@-=O)3) C3-2#*N =#-C3L)
OF L#ND OF 2H3 =@BL*C DOM#*N )*2@#23D
*N 2H3 M@N*C*=#L*2: OF D@M*NG#G
=-OK*NC3 OF Z#MBO#NG# D3L )@- *)L#ND
OF M*ND#N#O.
@&on recommen!ation o( t$e )ecretar' o(
#gric%lt%re an! Nat%ral -eso%rces an!
&%rs%ant to t$e a%t$orit' veste! in me b' la,
* F3-D*N#ND 3. M#-CO) =-3)*D3N2 OF 2H3
=H*L*==*N3) !o $ereb' ,it$!ra, (rom sale or
settlement an! %n!er t$e a!ministration o(
t$e Director o( =%blic )c$ools a!ministration
o( t$e M%nici&al Government o( D%mingag
s%b9ect to &rivate rig$ts i( an' t$ere be
certain &arcels o( lan! o( t$e &%blic !omain
sit%ate! in t$e M%nici&alit' o( D%mingag
=rovince o( Zamboanga !el )%r *slan! o(
Min!anao[
*t is to be note! t$at even be(ore t$e
=roclamation t$e &arcel o( lan! ,as t$e
s%b9ect o( ca!astral &rocee!ings be(ore
anot$er branc$ o( t$e -egional 2rial Co%rt o(
Zamboanga !el )%r. #t t$e time o( t$e (iling o(
t$e instant case t$e ca!astral &rocee!ings
inten!e! to settle t$e o,ners$i& over t$e
.%estione! &ortion o( t$e &arcel o( lan! %n!er
=roclamation No. 1GC ,ere still &en!ing. One
o( t$e claimants in t$e ca!astral &rocee!ings
is &rivate res&on!ent Kicente Me!ina ,$o
trace! $is o,ners$i& over t$e s%b9ect &arcel
o( lan! as (ar bac+ as 1807 ,$en $e allege!l'
bo%g$t t$e same (rom a )%banan native.
@n!er t$e ca!astral s'stem t$e government
t$ro%g$ t$e Director o( Lan!s initiates t$e
&rocee!ings b' (iling a &etition in co%rt a(ter
,$ic$ all o,ners or claimants are com&elle!
to act an! &resent t$eir ans,ers ot$er,ise
t$e' lose t$eir rig$t to t$eir o,n &ro&ert'. 2$e
&%r&ose is to serve t$e &%blic interests b'
re.%iring t$at t$e titles to an' lan!s "be
settle! an! a!9%!icate!." ;)ection 1 Ca!astral
#ct UNo. //C81V Government o( t$e =$ili&&ine
*slan!s v. #b%ral 18 =$il. 88G U1818V. *t is a
&rocee!ing in rem some,$at a+in to a 9%!icial
in.%ir' an! investigation lea!ing to a 9%!icial
!ecree. ;Director o( Lan!s v. -oman
#rc$bis$o& o( Manila 01 =$il. 1/5 U18/5V<
Consi!ering t$ere(ore t$e nat%re an! &%r&ose
o( t$e Ca!astral &rocee!ings t$e o%tcome o(
sai! &rocee!ings becomes a &re9%!icial
.%estion ,$ic$ m%st be a!!resse! in t$e
resol%tion o( t$e instant case. 6e a&&l' b'
analog' t$e r%ling in t$e case o( W%iambao v.
Osorio ;1C8 )C-# G70 U1888V< to ,it: 2$e
/8
instant controvers' boils !o,n to t$e sole
.%estion o( ,$et$er or not t$e a!ministrative
case bet,een t$e &rivate &arties involving t$e
lot s%b9ect matter o( t$e e9ectment case
constit%tes a &re9%!icial .%estion ,$ic$ ,o%l!
o&erate as a bar to sai! e9ectment case.
# &re9%!icial .%estion is %n!erstoo! in la, to
be t$at ,$ic$ arises in a case t$e resol%tion
o( ,$ic$ is a logical antece!ent o( t$e iss%e
involve! in sai! case an! t$e cogniBance o(
,$ic$ &ertains to anot$er trib%nal. ;Za&anta
v. Montesa 0 )C-# C15 U18G/VA =eo&le v.
#ragon C5 O.G.. No. 15 08G1< 2$e !octrine o(
&re9%!icial .%estion comes as in to &la'
generall' in a sit%ation ,$ere civil an!
criminal actions are &en!ing an! t$e iss%es
involve! in bat$ cases are similar or so
closel'Drelate! t$at an iss%e m%st be &reD
em&tivel' resolve! in t$e civil case be(ore t$e
criminal action can &rocee!. 2$%s t$e
e4istence it a &re9%!icial .%estion in a civil
case is allege! in t$e criminal case to ca%se
t$e s%s&ension o( t$e latter &en!ing (inal
!etermination o( t$e (ormer.
2$e essential elements o( a &re9%!icial
.%estion as &rovi!e! %n!er )ection C -%le
111 o( t$e -evise! -%les o( Co%rt area: UaV t$e
civil action involves an iss%e similar or
intimatel' relate! to t$e iss%e in t$e criminal
actionA an! UbV t$e resol%tion o( s%c$ iss%e
!etermines ,$et$er or not t$e criminal action
ma' &rocee!.
2$e actions involve! in t$e case at bar being
res&ectivel' civil an! a!ministrative in
c$aracter it is obvio%s t$at tec$nicall' t$ere
is no &re9%!icial .%estion to s&ea+ o(. 3.%all'
a&&arent $o,ever is t$e intimate correlation
bet,een sai! t,o U/V &rocee!ings stemming
(rom t$e (act t$at t$e rig$t o( &rivate
res&on!ents to e9ect &etitioner (rom t$e
!is&%te! &ortion !e&en!s &rimaril' on t$e
resol%tion o( t$e &en!ing a!ministrative case.
For ,$ile it ma' be tr%e t$at &rivate
res&on!ents $a! &rior &ossession o( t$e lot in
.%estion at t$e time o( t$e instit%tion o( t$e
e9ectment case s%c$ rig$t o( &ossession $a!
been terminate! or at t$e ver' least
s%s&en!e! b' t$e cancellation b' t$e Lan!
#%t$orit' o( t$e #greement to )ell e4ec%te!
in t$eir (avor. 6$et$er or not &rivate
res&on!ents can contin%e to e4ercise t$eir
rig$t o( &ossession is b%t a necessar' logical
conse.%ence o( t$e iss%e involve! in t$e
&en!ing a!ministrative case assailing t$e
vali!it' o( t$e cancellation o( t$e #greement
to )ell an! t$e s%bse.%ent a,ar! o( t$e
!is&%te! &ortion to &etitioner. *( t$e
cancellation o( t$e agreement to )ell an! t$e
s%bse.%ent a,ar! to &etitioner are voi!e!
t$en &rivate res&on!entHs rig$t o( &ossession
is lost an! so ,o%l! t$eir rig$t to e9ect
&etitioner (rom sai! &ortion.
Face! ,it$ t$ese !istinct &ossibilities t$e
more &r%!ent co%rse (or t$e trial co%rt to
$ave ta+en is to $ol! t$e e9ectment
&rocee!ings in abe'ance %ntil a(ter a
!etermination o( t$e a!ministrative case.
*n!ee! logic an! &ragmatism i( not
9%ris&r%!ence !ictate s%c$ move. 2o allo,
t$e &arties to %n!ergo trial not,it$stan!ing
t$e &ossibilit' o( &etitionerHs rig$t o(
&ossession being %&$el! in t$e &en!ing
a!ministrative case is to nee!lessl' re.%ire
not onl' t$e &arties b%t t$e co%rt as ,ell to
e4&en! time e((ort in ,$at ma' t%rn o%t to
be a s$eer e4ercise in (%tilit'. 2$%s 1 #m 7%r
/! tells %s: 2$e co%rt in ,$ic$ an action is
&en!ing ma' in t$e e4ercise o( a so%n!
!iscretion %&on &ro&er a&&lication (or a sta'
o( t$at action $ol! t$e action in abe'ance to
abi!e t$e o%tcome o( anot$er &en!ing in
anot$er co%rt es&eciall' ,$ere t$e &arties
an! t$e iss%es are t$e same (or t$ere is
&o,er in$erent in ever' co%rt to control t$e
15
!is&osition o( ca%ses an its !oc+ets ,it$
econom' o( time an! e((ort (or itsel( (or
co%nsel an! (or litigants. 6$ere t$e rig$ts o(
&arties in t$e recor! action cannot be
&ro&erl' !etermine! %ntil t$e .%estions raise!
in t$e (irst action are settle! t$e secon!
action s$o%l! be sta'e!.
6$ile t$is r%le is &ro&erl' a&&licable to
instances involving t,o U/V co%rt actions t$e
e4istence in t$e instant case o( t$e same
consi!erations o( i!entit' o( &arties an!
iss%es econom' o( time an! e((ort (or t$e
co%rt t$e co%nsels an! t$e &arties as ,ell as
t$e nee! to resolve t$e &artiesH rig$t o(
&ossession be(ore t$e e9ectment case ma' be
&ro&erl' !etermine! 9%sti(ies t$e r%leHs
analogo%s a&&lication to t$e case at bar.
2ec$nicall' a &re9%!icial .%estion s$all not
rise in t$e instant case since t$e t,o actions
involve! are bot$ civil in nat%re. Ho,ever ,e
$ave to consi!er t$e (act t$at t$e ca!astral
&rocee!ings ,ill %ltimatel' settle t$e real
o,ner?s o( t$e !is&%te! &arcel o( lan!. *n case
res&on!ent Kicente Me!ina is a!9%!ge! t$e
real o,ner o( t$e &arcel o( lan! t$en t$e ,rit
o( &ossession an! ,rit o( !emolition ,o%l!
necessaril' be n%ll an! voi!. Not onl' t$at.
2$e !emolition o( t$e constr%ctions in t$e
&arcel o( lan! ,o%l! &rove tr%l' %n9%st to t$e
&rivate res&on!ents.
Patalinhug v. CA
Facts: 2$e )angg%niang =anl%ngso! o( Davao Cit' enacte!
Or!inance 1G1 series o( 188/ ot$er,ise +no,n as t$e "34&an!e!
Zoning Or!inance o( Davao Cit'" )ection 8 o( ,$ic$ states: )ec. 8.
@)3 -3G@L#2*ON) *N CD/ D*)2-*C2) ;)$a!e! lig$t re! in t$e
34&an!e! Zoning Ma&< #CD/ District s$all be !ominantl' (or
commercial an! com&atible in!%strial %ses as &rovi!e! $ere%n!er:
1.1 F%neral =arlors?Memorial Homes ,it$ a!e.%ate o(( street
&ar+ing s&ace ;see &ar+ing stan!ar!s o( =.D. 158G< an! &rovi!e!
t$at t$e' s$all be establis$e! not less t$an C5 meters (rom an'
resi!ential str%ct%res c$%rc$es an! ot$er instit%tional b%il!ings.
@&on &rior a&&roval an! certi(ication o( Boning com&liance b'
Zoning #!ministrator iss%e! on Febr%ar' 15 1887 B%il!ing =ermit
No. 875/C0 in (avor o( &etitioner (or t$e constr%ction o( a (%neral
&arlor in t$e name an! st'le o( Metro&olitan F%neral =arlor at
Cabag%io #ven%e #g!ao Davao Cit'.
2$erea(ter &etitioner commence! t$e constr%ction o( $is (%neral
&arlor.
#cting on t$e com&laint o( several resi!ents o( Baranga' #g!ao
Davao Cit' t$at t$e constr%ction o( &etitionerHs (%neral &arlor
violate! Or!inance
No. 1G1 since it ,as allege!l' sit%ate! ,it$in a C5Dmeter ra!i%s
(rom t$e *glesia ni Mristo C$a&el an! several resi!ential str%ct%res
t$e )angg%niang =anl%ngso! con!%cte! an investigation an! (o%n!
t$at "t$e nearest resi!ential str%ct%re o,ne! b' 6il(re! G. 2e&oot
is onl' 8 inc$es to t$e so%t$. . . . ."
Not,it$stan!ing t$e (in!ings o( t$e )angg%niang =anl%ngso!
&etitioner contin%e! to constr%ct $is (%neral &arlor ,$ic$ ,as
(inis$e! on November 1 1887.
Conse.%entl' &rivate res&on!ents (ile! on )e&tember G 1888 a
case (or t$e !eclaration o( n%llit' o( a b%il!ing &ermit ,it$
&reliminar' &ro$ibitor' an! man!ator' in9%nction an!?or restraining
or!er ,it$ t$e trial co%rt.
*ss%e:
1. 6ON t$e C# erre! in concl%!ing t$at t$e 2e&oot b%il!ing
a!9acent to &etitionerHs (%neral &arlor is resi!ential sim&l'
beca%se it ,as allege!l' !eclare! as s%c$ (or ta4ation
&%r&oses in com&lete !isregar! o( Or!inance 1G1 !eclaring
t$e s%b9ect area as !ominantl' (or commercial an!
com&atible in!%strial %ses. :3).
# ta4 !eclaration is not concl%sive o( t$e nat%re o( t$e
&ro&ert' (or Boning &%r&oses. # &ro&ert' ma' $ave been
!eclare! b' its o,ner as resi!ential (or real estate ta4ation
&%r&oses b%t it ma' ,ell be ,it$in a commercial Bone. #
!iscre&anc' ma' t$%s e4ist in t$e !etermination o( t$e
nat%re o( &ro&ert' (or real estate ta4ation &%r&oses visDaDvis
t$e !etermination o( a &ro&ert' (or Boning &%r&oses.
3ven i( ,e are to e4amine t$e evi!entiar' val%e o( a ta4
!eclaration %n!er t$e -eal =ro&ert' 2a4 Co!e a ta4
!eclaration onl' enables t$e assessor to i!enti(' t$e same
(or assessment levels. *n (act a ta4 !eclaration !oes not
bin! a &rovincial?cit' assessor (or %n!er )ec. // o( t$e -eal
11
3state 2a4 Co!e a&&raisal an! assessment are base! on
t$e act%al %se irres&ective o( "an' &revio%s assessment or
ta4&a'erHs val%ation t$ereon" ,$ic$ is base! on a
ta4&a'erHs !eclaration. *n (act a &iece o( lan! !eclare! b' a
ta4&a'er as resi!ential ma' be assesse! b' t$e &rovincial or
cit' assessor as commercial beca%se its act%al %se is
commercial.
2$e trial co%rtHs !etermination t$at Mr. 2e&ootHs b%il!ing is
commercial an! t$ere(ore )ec. 8 is ina&&licable is
strengt$ene! b' t$e (act t$at t$e )angg%niang =anl%ngso!
$as !eclare! t$e .%estione! area as commercial or CD/.
Conse.%entl' even i( 2e&ootHs b%il!ing ,as !eclare! (or
ta4ation &%r&oses as resi!ential once a local government
$as reclassi(ie! an area as commercial t$at !etermination
(or Boning &%r&oses m%st &revail. 6$ile t$e commercial
c$aracter o( t$e .%estione! vicinit' $as been !eclare! t$r%
t$e or!inance &rivate res&on!ents $ave (aile! to &resent
convincing arg%ments to s%bstantiate t$eir claim t$at
Cabag%io #ven%e ,$ere t$e (%neral &arlor ,as constr%cte!
,as still a resi!ential Bone. @n.%estionabl' t$e o&eration o(
a (%neral &arlor constit%tes a "commercial &%r&ose" as
gleane! (rom Or!inance 1G1.
2$e !eclaration o( t$e sai! area as a commercial Bone t$r% a
m%nici&al or!inance is an e4ercise o( &olice &o,er to
&romote t$e goo! or!er an! general ,el(are o( t$e &eo&le in
t$e localit'. Corollar' t$ereto t$e state in or!er to &romote
t$e general ,el(are ma' inter(ere ,it$ &ersonal libert' ,it$
&ro&ert' an! ,it$ b%siness an! occ%&ations.
=ersons ma' be s%b9ecte! to certain +in!s o( restraints an!
b%r!ens in or!er to sec%re t$e general ,el(are o( t$e state
an! to t$is (%n!amental aim o( government t$e rig$ts o(
t$e in!ivi!%al ma' be s%bor!inate!. 2$e or!inance ,$ic$
reg%lates t$e location o( (%neral $omes $as been a!o&te! as
&art o( com&re$ensive Boning &lans (or t$e or!erl'
!evelo&ment o( t$e area covere! t$ere%n!er.
Greater Balanga *evelopment Corp. v. Municipalit# o!
Balanga
Facts: 2$is case involves a &arcel o( lan! sit%ate! in Barrio )an
7ose M%nici&alit' o( Balanga =rovince o( Bataan. *t is registere! in
t$e name o( &etitioner Greater Balanga Develo&ment Cor&oration.
GBDC is a !omestic cor&oration o,ne! an! controlle! b' t$e
Camac$o (amil' ,$ic$ !onate! to t$e M%nici&alit' o( Balanga t$e
&resent site o( t$e Balanga =%blic Mar+et. 2$e lot in !is&%te lies
be$in! t$e Balanga =%blic Mar+et. *n 1887 GBDC con!%cte! a
relocation s%rve' o( t$e area. *t !iscovere! t$at certain &ortions o(
t$e &ro&ert' $a! been "%nla,(%ll' %s%r&e! an! inva!e!" b' t$e
M%nici&alit' o( Balanga ,$ic$ $a! "allo,e!?tolerate!?abette!" t$e
constr%ction o( s$anties an! mar+et stalls ,$ile c$arging mar+et
(ees an! mar+et entrance (ees (rom t$e occ%&ants an! %sers o( t$e
area. GBDC t$en a&&lie! ,it$ t$e O((ice o( t$e Ma'or o( Balanga (or
a b%siness &ermit to engage in b%siness in t$e sai! area. On t$e
same !a' Ma'or Melanio ). BanBon 7r. iss%e! Ma'orHs =ermit No.
/7/8 granting &etitioner t$e &rivilege o( a "real estate
!ealer?&rivatel'Do,ne! &%blic mar+et o&erator" %n!er t$e tra!e
name o( Balanga =%blic Mar+et.
Ho,ever t$e )angg%niang Ba'an o( Balanga &asse! -esol%tion No.
1/ sD88 ann%lling t$e Ma'orHs &ermit iss%e! to &etitioner an!
a!vising t$e Ma'or to revo+e t$e &ermit "to o&erate a &%blic
mar+et." =%rs%ant to sai! -esol%tion Ma'or BanBon on Marc$ 7
1888 iss%e! 34ec%tive Or!er No. 1 sD88 revo+ing t$e &ermit
inso(ar as it a%t$oriBe! t$e o&eration o( a &%blic mar+et.
GBDC (ile! t$e instant &etition ,it$ a &ra'er (or t$e iss%ance o( a
,rit o( &reliminar' man!ator' an! &ro$ibitor' in9%nction or
restraining or!er aime! at t$e reinstatement o( t$e Ma'orHs &ermit
an! t$e c%rtailment o( t$e m%nici&alit'Hs collection o( mar+et (ees
an! mar+et entrance (ees. 2$e Co%rt !i! not iss%e t$e &reliminar'
relie(s &ra'e! (or.
*ss%e: 6ON t$e Ma'or ma' iss%e !en' or revo+e m%nici&al
licenses an! &ermits.
-es&on!ent: as t$e local c$ie( e4ec%tive t$e Ma'or ma'
iss%e !en' or revo+e m%nici&al licenses an! &ermits. 2$e'
conten!e! t$at -esol%tion No. 1/ sD88 o( t$e )angg%niang
Ba'an t$e basis o( 34ec%tive Or!er No. 1 sD88 ,as a
legitimate e4ercise o( local legislative a%t$orit' an! as
s%c$ t$e revocation o( &etitionerHs &ermit ,as not tainte!
,it$ an' grave ab%se o( !iscretion. GBDC asserte! t$at t$e
e4ec%tive or!er an! t$e resol%tion in .%estion ,ere .%asiD
9%!icial acts an! not mere e4ercises o( &olice &o,er. *t
.%estione! res&on!entsH (ail%re to observe !%e &rocess in
revo+ing t$e &ermit an! c$allenge! t$e legalit' o( t$e
collection o( t$e mar+et an! entrance (ees b' t$e
m%nici&alit'.
1/
2$e a%t$orit' o( t$e Ma'or to revo+e a &ermit $e iss%e! is
&remise! on a violation b' t$e grantee o( an' o( t$e
con!itions (or ,$ic$ t$e &ermit $a! been grante!.
-es&on!ents claime! t$at &etitioner $a! violate! t$e
&rovisions o( )ection 1#D5G;b< o( t$e Balanga -even%e Co!e
,$en it (aile! to in(orm t$e Ma'or t$at t$e lot in controvers'
,as t$e s%b9ect o( a!verse claims (or ,$ic$ a civil case ,as
(ile!.
)ection 1#D5G;b< o( t$e Balanga -even%e Co!e rea!s: ;b<
2$e a&&lication (or a Ma'orHs &ermit s$all state t$e name
resi!ence an! citiBens$i& o( ;sic< t$e a&&licantHs (%ll
!escri&tion o( t$e b%siness t$e &artic%lar &lace ,$ere ;sic<
t$e same s$all be con!%cte! an! s%c$ ot$er &ertinent
in(ormation an! !ate ;sic< as an' ;sic< be re.%ire!. *( t$e
a&&licant !eliberatel' ma+es a (alse statement in t$e
a&&lication (orm t$e M%nici&al Ma'or ma' revo+e t$e
&ermit an! t$e a&&licant ma' be &rosec%te! an! &enaliBe!
in accor!ance ,it$ t$e &ertinent &rovisions o( &enal la,s.
*n case a &erson !esires to con!%ct t$e same +in! or line o(
b%siness in anot$er &lace ,it$in t$e M%nici&alit' in a!!ition
to or asi!e (rom t$e establis$ment s&eci(ie! in $is &ermit
$e s$all sec%re a se&arate &ermit (or eac$ b%siness an! &a'
t$e corres&on!ing (ee im&ose! in t$is article. *( a &erson
!esires to engage in more t$an one +in! or line o( b%siness
$e s$all &a' t$e (ee im&ose! on eac$ se&arate b%siness
not,it$stan!ing t$e (act t$at $e ma' con!%ct or o&erate all
!istinct b%siness ;sic< tra!es or occ%&ation in one &lace
onl'
;$< -evocation o( =ermit. S 2$e M%nici&al Ma'or ma'
revo+e a &ermit in e((ect close t$e establis$ment %&on a
violation o( e4isting or!inance reg%lating b%siness
establis$ments or an' &rovisions o( t$is article in a!!ition
to t$e (ine an! im&risonment t$at t$e' ;sic< ma' be
im&ose! b' t$e co%rt (or violation o( t$is article
-es&on!ents claim t$at &etitioner ;1< !eliberatel' ma!e a
(alse statement in t$e a&&lication (orm ,$en it (aile! to
&rovi!e t$e in(ormation t$at t$eir &lace o( b%siness is t$e
s%b9ect o( a!verse claimsA an! ;/< (aile! to a&&l' (or t,o
se&arate &ermits (or t$e t,o lines o( b%siness it &ro&ose! to
engage in.
2$e a&&lication (or Ma'orHs &ermit in t$e case at benc$
re.%ires t$e a&&licant to state ,$at t'&e o( "b%siness"
&ro(ession occ%&ation an!?or calling &rivileges" is being
a&&lie! (or. =etitioner le(t t$is entr' ban+ in its a&&lication
(orm ;-ollo &. 1/0<. *t is onl' in t$e Ma'orHs &ermit itsel(
t$at &etitionerHs lines o( b%siness a&&ear ,$ic$ in t$is case
are t,o se&arate t'&es one as real estate !ealer an!
anot$er as &%blic mar+et o&erator.
2$e &ermit s$o%l! not $ave been iss%e! ,it$o%t t$e
re.%ire! in(ormation given in t$e a&&lication (orm itsel(.
-evo+ing t$e &ermit $o,ever beca%se o( a (alse statement
in t$e a&&lication (orm cannot be 9%sti(ie! %n!er t$e
a(orementione! &rovision. 2$ere m%st be &roo( o( ,ill(%l
misre&resentation an! !eliberate intent to ma+e a (alse
statement. Goo! (ait$ is al,a's &res%me! an! as it
$a&&ene! &etitioner !i! not ma+e an' (alse statement in
t$e &ertinent entr'. Neit$er ,as &etitionerHs a&&l'ing (or t,o
b%sinesses in one &ermit a gro%n! (or revocation.
2$e .%estion o( o,ners$i& over Lot /G1DB $a! alrea!' been
settle! ,it$ (inalit' b' t$e )%&reme Co%rt in 1881 in G.-.
No. G///1. 3ntr' o( 9%!gment ,as li+e,ise ma!e in t$e
same 'ear. 6$en t$e Ma'orHs &ermit ,as revo+e! on
Febr%ar' 18 1888 (ive 'ears $a! alrea!' ela&se! since t$e
case ,as !eci!e!. =etitioner ,as able to s%rve' t$e lan!
an! $ave t$e s%rve' a&&rove! on Marc$ /1 1880 ;-ollo &&.
1CD1G< an! on 7an%ar' 11 1888 &etitioner obtaine! in its
name 2C2 No. 1/51C/ ",it$o%t an' memoran!%m o(
enc%mbrance or enc%mbrances &ertaining to an' !ecision
ren!ere! in an' civil case" Clearl' (or all intents an!
&%r&oses &etitioner a&&eare! to be t$e tr%e o,ner o( Lot
/G1DBDGD#D1 ,$en res&on!ents revo+e! its &ermit to
engage! in b%siness on its o,n lan!.
#ss%ming arg%en!o t$at Lot /G1DBDGD#D1 ,as act%all' one o(
t$ose a,ar!e! to t$e &lainti((s in Civil Case No. 1851 an!
t$e 2rans(er Certi(icate o( 2itle o( &etitioner is s&%rio%s t$is
still !oes not 9%sti(' t$e revocation o( t$e Ma'orHs &ermit. #
close scr%tin' o( t$e recor!s reveals t$at t$e )angg%niang
Ba'an !i! not establis$ or maintain an' &%blic mar+et on
t$e s%b9ect lot. 2$e resol%tion merel' mentione! t$e &lan to
ac.%ire t$e lot (or e4&ansion o( t$e &%blic mar+et a!9acent
t$ereto. @ntil e4&ro&riation &rocee!ings are instit%te! in
co%rt t$e lan!o,ner cannot be !e&rive! o( its rig$t over t$e
lan!.
11
O( co%rse t$e )angg%niang Ba'an $as t$e !%t' in t$e
e4ercise o( its &olice &o,ers to reg%late an' b%siness
s%b9ect to m%nici&al license (ees an! &rescribe t$e
con!itions %n!er ,$ic$ a m%nici&al license alrea!' iss%e!
ma' be revo+e! ;B.=. Blg. 117 )ec. 108 U1V UrV<. B%t t$e
"an4iet' %ncertaint' restiveness" among t$e stall$ol!ers
an! tra!ers cannot be a vali! gro%n! (or revo+ing t$e &ermit
o( &etitioner. #(ter all t$e stall$ol!ers an! tra!ers ,ere
!oing b%siness on &ro&ert' not belonging to t$e M%nici&al
government. *n!ee! t$e claim t$at t$e e4ec%tive or!er an!
resol%tion ,ere meas%res "!esigne! to &romote &eace an!
or!er an! &rotect t$e general ,el(are o( t$e &eo&le o(
Balanga" is too amor&$o%s an! convenient an e4c%se to
9%sti(' res&on!entsH acts ;Killacorta v. Bernar!o 101 )C-#
085 U188GV<.
*n vie, o( t$e %n!is&%te! (act t$at t$e res&on!ent
M%nici&alit' is not t$e o,ner o( Lot /G1DBDGD#D1 t$en t$ere
is no legal basis (or it to im&ose an! collect mar+et (ees an!
mar+et entrance (ees. Onl' t$e o,ner $as t$e rig$t to !o so.

'ano v. (ocrates
Facts: )angg%niang =anl%ngso! ng =%erto =rincesa Cit' enacte!
Or!inance No. 1CD8/ ,$ic$ banne! t$e s$im&ment o( live (is$a an!
lobster o%tsi!e =%erto =rincesa Cit' (rom 51 7an 1881D1888. 6$ile
t$e )angg%niang =anlala,igan =rovincial Government o( =ala,an
enacte! -esol%tion No. 11 ,$ic$ &ro$ibite! t$e catc$ing
gat$ering &ossessing b%'ing selling an! s$i&ment o( love marine
coral !,elling a.%atic organisms (or a &erio! o( C 'ears in an!
coming (rom =ala,an ,aters. Or!inance No. / Or!inance
=ro$ibiting t$e catc$ing gat$ering &ossessing b%'ing selling an!
s$i&ment o( live marine coral !,elling a.%atic organisms ,as also
enacte!. 2$e res&on!ents im&lemente! t$e sai! or!inances
!e&riving all t$e (is$ermen o( t$e ,$ole &rovince o( =ala,an an!
t$e Cit' o( =%erto =rincesa o( t$eir onl' means o( liveli$oo! an! t$e
&etitioners #irline )$i&&ers #ssociation o( =ala,an an! ot$er
marine merc$ants (rom &er(orming t$eir la,(%l occ%&ation an!
tra!e. =etitioners #l(re!o 2ano Bal!omero 2ano 2eocenes Mi!ello
#ngel !e Mesa 3%logio 2remoc$a an! Feli&e Ongonion 7r. ,ere
c$arge! criminall' on t$e basis o( t$e or!inances.
2$e &etitioners (ile! t$is action claiming t$at (irst t$e Or!inances
!e&rive! t$em o( !%e &rocess o( la, t$eir liveli$oo! an! %n!%l'
restricte! t$em (rom t$e &ractice o( t$eir tra!e in violation o(
)ection / #rticle J** an! )ections / an! 7 o( #rticle J*** o( t$e 1887
Constit%tion. )econ! O((ice Or!er No. /1 containe! no reg%lation
nor con!ition %n!er ,$ic$ t$e Ma'or>s &ermit co%l! be grante! or
!enie!A in ot$er ,or!s t$e Ma'or $a! t$e absol%te a%t$orit' to
!etermine ,$et$er or not to iss%e &ermit. 2$ir! as t$e Or!inance
No. / altoget$er &ro$ibite! t$e catc$ing gat$ering &ossession
b%'ing selling an! s$i&&ing o( live marine coral !,elling
organisms ,it$o%t an' !istinction ,$et$er it ,as ca%g$t or
gat$ere! t$ro%g$ la,(%l (is$ing met$o! t$e Or!inance too+ a,a'
t$e rig$t o( &etitionersD(is$ermen to earn t$eir liveli$oo! in la,(%l
,a's. Finall' as Or!inance No. / o( t$e )angg%niang =anlala,igan
is n%ll an! voi! t$e criminal cases base! t$ereon against
&etitioners 2ano an! t$e ot$ers $ave to be !ismisse!.
Governor )ocrates an! Members o( t$e )angg%niang =anlala,igan
o( =ala,an !e(en!e! t$e vali!it' o( Or!inance No./ as a vali!
e4ercise o( t$e =rovincial Government &o,er %n!er t$e general
,el(are cla%se ;)ection 1G o( t$e LGC o( 1881 U$erea(ter LGCV<
an! its s&eci(ic &o,er to &rotect t$e environment an! im&ose
a&&ro&riate &enalties (or acts ,$ic$ en!anger t$e environment
s%c$ as !'namite (is$ing an! ot$er (orms o( !estr%ctive (is$ing
%n!er )ection 007 ;a< ;1< ;vi< )ection 0C8 ;a< ;1< ;vi< an! )ection
0G8 ;a< ;1< ;vi< o( t$e LGC. 2$e' claime! t$at in t$e e4ercise o(
s%c$ &o,ers t$e =rovince o( =ala,an $a! t$e rig$t an!
res&onsibilt' to ins%re t$at t$e remaining coral ree(s ,$ere (is$
!,ells UsicV ,it$in its territor' remain $ealt$' (or t$e (%t%re
generation. 2$e Or!inance t$e' (%rt$er asserte! covere! onl' live
marine coral !,elling a.%atic organisms ,$ic$ ,ere en%merate! in
t$e or!inance an! e4cl%!e! ot$er +in!s o( live marine a.%atic
organisms not !,elling in coral ree(sA besi!es t$e &ro$ibition ,as
(or onl' (ive ;C< 'ears to &rotect an! &reserve t$e &ristine coral an!
allo, t$ose !amage! to regenerate.
2$e' li+e,ise maintaine! t$at t$ere ,as no violation o( !%e
&rocess an! e.%al &rotection cla%ses o( t$e Constit%tion. #s to t$e
(ormer &%blic $earings ,ere con!%cte! be(ore t$e enactment o(
t$e Or!inance ,$ic$ %n!o%bte!l' $a! a la,(%l &%r&ose an!
em&lo'e! reasonable meansA ,$ile as to t$e latter a s%bstantial
!istinction e4iste! bet,een a (is$erman ,$o catc$es live (is$ ,it$
t$e intention o( selling it live an! a (is$erman ,$o catc$es live (is$
,it$ no intention at all o( selling it live i.e. t$e (ormer %ses so!i%m
c'ani!e ,$ile t$e latter !oes not. F%rt$er t$e Or!inance a&&lie!
e.%all' to all t$ose belonging to one class.
10
2$ere are act%all' t,o sets o( &etitioners in t$is case. 2$e
&rimar' interest o( t$e (irst set o( &etitioners is to &revent t$e
&rosec%tion trial an! !etermination o( t$e criminal cases %ntil t$e
constit%tionalit' or legalit' o( t$e Or!inances t$e' allege!l'
violate! s$all $ave been resolve!. 2$e secon! set o( &etitioners
merel' claim t$at t$e' being (is$ermen or marine merc$ants t$e'
,o%l! be a!versel' a((ecte! b' t$e or!inances. 2$e &etitioners
claim t$at as s%bsistence or marginal (is$ermen t$e' are entitle!
to t$e &rotection o( t$e )tate as ens$rine! in )ection / o( #rticle J**
o( t$e Constit%tion.
*ss%e:
1. 6$et$er &etitioners are s%bsistence or marginal
(is$ermenT NO.
)ince t$e Constit%tion !oes not s&eci(icall' &rovi!e a
!e(inition o( t$e terms "s%bsistence" or "marginal"
(is$ermen t$e' s$o%l! be constr%e! in t$eir general an!
or!inar' sense. # marginal (is$erman is an in!ivi!%al
engage! in (is$ing ,$ose margin o( ret%rn or re,ar! in $is
$arvest o( (is$ as meas%re! b' e4isting &rice levels is barel'
s%((icient to 'iel! a &ro(it or cover t$e cost o( gat$ering t$e
(is$ ,$ile a s%bsistence (is$erman is one ,$ose catc$
'iel!s b%t t$e irre!%cible minim%m (or $is liveli$oo!. )ection
111;&< o( t$e LGC ;-.#. No. 71G5< !e(ines a marginal (armer
or (is$erman as "an in!ivi!%al engage! in s%bsistence
(arming or (is$ing ,$ic$ s$all be limite! to t$e sale barter
or e4c$ange o( agric%lt%ral or marine &ro!%cts &ro!%ce! b'
$imsel( an! $is imme!iate (amil'." *t bears re&eating t$at
not$ing in t$e recor! s%&&orts a (in!ing t$at an' &etitioner
(alls ,it$in t$ese !e(initions.
Besi!es )ection / o( #rticle J** aims &rimaril' not to besto,
an' rig$t to s%bsistence (is$ermen b%t to la' stress on t$e
!%t' o( t$e )tate to &rotect t$e nationHs marine ,ealt$.
6$at t$e &rovision merel' recogniBes is t$at t$e )tate ma'
allo, b' la, coo&erative (is$ (arming ,it$ &riorit' to
s%bsistence (is$ermen an! (is$,or+ers in rivers la+es ba's
an! lagoons.
#nent )ection 7 o( #rticle J*** it s&ea+s not onl' o( t$e %se
o( comm%nal marine an! (is$ing reso%rces b%t o( t$eir
&rotection !evelo&ment an! conservation. #s $erea(ter
s$o,n t$e or!inances in .%estion are meant &recisel' to
&rotect an! conserve o%r marine reso%rces to t$e en! t$at
t$eir en9o'ment ma' be g%arantee! not onl' (or t$e &resent
generation b%t also (or t$e generations to come.
2$e soDcalle! "&re(erential rig$t" o( s%bsistence or marginal
(is$ermen to t$e %se o( marine reso%rces is not at all
absol%te. *n accor!ance ,it$ t$e -egalian Doctrine marine
reso%rces belong to t$e )tate an! &%rs%ant to t$e (irst
&aragra&$ o( )ection / #rticle J** o( t$e Constit%tion t$eir
"e4&loration !evelo&ment an! %tiliBation . . . s$all be %n!er
t$e (%ll control an! s%&ervision o( t$e )tate."
1. 6$et$er t$e or!inances in .%estion are %nconstit%tionalT
NO.
Moreover )ection C;c< o( t$e LGC e4&licitl' man!ates t$at
t$e general ,el(are &rovisions o( t$e LGC "s$all be liberall'
inter&rete! to give more &o,ers to t$e LG@s in accelerating
economic !evelo&ment an! %&gra!ing t$e .%alit' o( li(e (or
t$e &eo&le o( t$e comm%nit'."
2$e LGC vests m%nici&alities ,it$ t$e &o,er to grant (is$er'
&rivileges in m%nici&al ,aters an! im&ose rentals (ees or
c$arges t$ere(orA to &enaliBe b' a&&ro&riate or!inances
t$e %se o( e4&losives no4io%s or &oisono%s s%bstances
electricit' m%roDami an! ot$er !eleterio%s met$o!s o(
(is$ingA an! to &rosec%te an' violation o( t$e &rovisions o(
a&&licable (is$er' la,s. F%rt$er t$e sangg%niang ba'an t$e
sangg%niang &anl%ngso! an! t$e sangg%niang &anlala,igan
are !irecte! to enact or!inances (or t$e general ,el(are o(
t$e m%nici&alit' an! its in$abitants ,$ic$ s$all incl%!e
inter alia or!inances t$at "U&Vrotect t$e environment an!
im&ose a&&ro&riate &enalties (or acts ,$ic$ en!anger t$e
environment s%c$ as !'namite (is$ing an! ot$er (orms o(
!estr%ctive (is$ing . . . an! s%c$ ot$er activities ,$ic$ res%lt
in &oll%tion acceleration o( e%tro&$ication o( rivers an!
la+es or o( ecological imbalance."
Finall' t$e center&iece o( LGC is t$e s'stem o(
!ecentraliBation as e4&ressl' man!ate! b' t$e Constit%tion..
*n!is&ensable to !ecentraliBation is !evol%tion an! t$e LGC
e4&ressl' &rovi!es t$at "UaVn' &rovision on a &o,er o( a LG@
s$all be liberall' inter&rete! in its (avor an! in case o(
!o%bt an' .%estion t$ereon s$all be resolve! in (avor o(
!evol%tion o( &o,ers an! o( t$e lo,er LG@. #n' (air an!
reasonable !o%bt as to t$e e4istence o( t$e &o,er s$all be
inter&rete! in (avor o( t$e LG@ concerne!." Devol%tion
re(ers to t$e act b' ,$ic$ t$e National Government con(ers
1C
&o,er an! a%t$orit' %&on t$e vario%s LG@s to &er(orm
s&eci(ic (%nctions an! res&onsibilities.
*n lig$t t$en o( t$e &rinci&les o( !ecentraliBation an!
!evol%tion ens$rine! in t$e LGC an! t$e &o,ers grante!
t$erein to LG@s %n!er )ection 1G ;t$e General 6el(are
Cla%se< an! %n!er )ections 108 007;a< ;1< ;vi< 0C8 ;a< ;1<
;vi< an! 0G8 ;a< ;1< ;vi< ,$ic$ %n.%estionabl' involve t$e
e4ercise o( &olice &o,er t$e vali!it' o( t$e .%estione!
Or!inances cannot be !o%bte!.
=arent$eticall' ,e ,is$ to a!! t$at t$ese Or!inances (in!
(%ll s%&&ort %n!er -.#. No. 7G11 ot$er,ise +no,n as t$e
)trategic 3nvironmental =lan ;)3=< (or =ala,an #ct
a&&rove! on 18 7%ne 188/. 2$is stat%te a!o&ts a
"com&re$ensive (rame,or+ (or t$e s%stainable !evelo&ment
o( =ala,an com&atible ,it$ &rotecting an! en$ancing t$e
nat%ral reso%rces an! en!angere! environment o( t$e
&rovince".
*t is clear to t$e Co%rt t$at t$e Or!inances $ave t,o
&rinci&al ob9ectives or &%r&oses: ;1< to establis$ a "close!
season" (or t$e s&ecies o( (is$ or a.%atic animals covere!
t$erein (or a &erio! o( (ive 'earsA an! ;/< to &rotect t$e coral
in t$e marine ,aters o( t$e Cit' o( =%erto =rincesa an! t$e
=rovince o( =ala,an (rom (%rt$er !estr%ction !%e to illegal
(is$ing activities.
2$e accom&lis$ment o( t$e (irst ob9ective is ,ell ,it$in t$e
!evolve! &o,er to en(orce (is$er' la,s in m%nici&al ,aters
s%c$ as =.D. No. 151C ,$ic$ allo,s t$e establis$ment o(
"close! seasons." 2$e !evol%tion o( s%c$ &o,er $as been
e4&ressl' con(irme! in t$e Memoran!%m o( #greement o( C
#&ril 1880 bet,een t$e De&artment o( #gric%lt%re an! t$e
De&artment o( *nterior an! Local Government.
2$e realiBation o( t$e secon! ob9ective clearl' (alls ,it$in
bot$ t$e general ,el(are cla%se o( t$e LGC an! t$e e4&ress
man!ate to cities an! &rovinces to &rotect t$e environment
an! im&ose a&&ro&riate &enalties (or acts ,$ic$ en!anger
t$e environment.
2$ere(ore it is incorrect to sa' t$at t$e c$allenge!
Or!inance o( t$e Cit' o( =%erto =rincesa is invali! or
%nen(orceable beca%se it ,as not a&&rove! b' t$e
)ecretar' o( t$e D3N-. *( at all t$e a&&roval t$at s$o%l! be
so%g$t ,o%l! be t$at o( t$e )ecretar' o( t$e De&artment o(
#gric%lt%re. Ho,ever t$e re.%irement o( a&&roval b' t$e
)ecretar' o( t$e De&artment o( #gric%lt%re ;not D3N-< o(
m%nici&al or!inances a((ecting (is$ing an! (is$eries in
m%nici&al ,aters $as been !is&ense! ,it$ in vie, o( t$e
(ollo,ing reason: ;1< #s !isc%sse! earlier %n!er t$e general
,el(are cla%se o( t$e LGC LG@s $ave t$e &o,er inter alia
to enact or!inances to en$ance t$e rig$t o( t$e &eo&le to a
balance! ecolog'. *t li+e,ise s&eci(icall' vests m%nici&alities
,it$ t$e &o,er to grant (is$er' &rivileges in m%nici&al
,aters an! im&ose rentals (ees or c$arges t$ere(orA to
&enaliBe b' a&&ro&riate or!inances t$e %se o( e4&losives
no4io%s or &oisono%s s%bstances electricit' m%roDami an!
ot$er !eleterio%s met$o!s o( (is$ingA an! to &rosec%te an'
violation o( t$e &rovisions o( a&&licable (is$er' la,s. Finall'
it im&oses %&on t$e sangg%niang ba'an t$e sangg%niang
&anl%ngso! an! t$e sangg%niang &anlala,igan t$e !%t' to
enact or!inances to "U&Vrotect t$e environment an! im&ose
a&&ro&riate &enalties (or acts ,$ic$ en!anger t$e
environment s%c$ as !'namite (is$ing an! ot$er (orms o(
!estr%ctive (is$ing . . . an! s%c$ ot$er activities ,$ic$ res%lt
in &oll%tion acceleration o( e%tro&$ication o( rivers an!
la+es or o( ecological imbalance.
1G
17
18
(angalang v. )AC
Facts: )t%!ies ,ere ma!e b' Ma'or :ab%t et al on t$e (easibilit' o(
o&ening streets in BelD#ir calc%late! to alleviate tra((ic congestion
along t$e &%blic streets a!9acent to BelD#ir. Base! on t$e st%!ies it
,as !eeme! necessar' in t$e interest o( t$e general &%blic to
o&en to tra((ic #ma&ola Merce!es Zo!ia 7%&iter Ne&t%ne Orbit
an! =aseo !e -o4as streets. #ccor!ing to BelD#ir t$e' o,n t$e
streets an! as s%c$ s$o%l! not be !e&rive! o( t$em ,it$o%t 9%st
com&ensation.
*ss%e: 6ON t$e ma'or acte! arbitraril' in o&ening %& 7%&iter an!
Orbit streets. NO.
18
2$e o&ening o( 7%&iter ,as ,arrante! b' t$e !eman!s o( t$e
common goo! in terms o( tra((ic !econgestion an! &%blic
convenience. 2$e same is %&$el! in t$e case o( Orbit street.
2$ere is not merit in B#K#>s claims t$at t$e !emolition o(
t$e gates at Orbit an! 7%&iter amo%nts to !e&rivation o(
&ro&ert' ,it$o%t !%e &rocess o( la, or e4&ro&riation ,it$o%t
9%st com&ensation. 2$ere is no ta+ing involve! in t$is case.
2$e act o( t$e ma'or is in t$e conce&t o( &olice &o,er.
=#)3* v. Drilon: =olice =o,er: state a%t$orit' to enact
legislation t$at ma' inter(ere ,it$ &ersonal libert' or
&ro&ert' in or!er to &romote t$e general ,el(are. Consists
o(: 1. #n im&osition o( restraint %&on libert' or &ro&ert' /. *n
or!er to (oster t$e common goo! 2$e &olice &o,er o( t$e
state is a &o,er coe4tensive ,it$ sel(D&rotection an! it is not
ina&tl' terme! t$e la, o( over,$elming necessit'. *t ma' be
sai! to be t$at in$erent an! &lenar' &o,er in t$e state
,$ic$ enables it to &ro$ibit all t$ings $%rt(%l to t$e com(ort
sa(et' an! ,el(are o( societ'.
Bill o( rig$ts: even libert' itsel( t$e greatest o( all rig$ts is
not %nrestricte! license to act accor!ingl' to one>s ,ill. *t is
s%b9ect to t$e (ar more overri!ing !eman!s an!
re.%irements o( t$e greater n%mber.
Ho,ever it ma' not be !one arbitraril' or %nreasonabl'.
B%r!en o( s$o,ing t$at it is %n9%sti(ie! lies on aggrieve!
&art'. *n t$e case at bar. B#K# $as (aile! to s$o, t$at t$e
o&ening ,as %n9%sti(ie! or t$at t$e ma'or acte!
%nreasonabl'.
#rt. 751: s%mmar' abatement ma' be carrie! o%t b' t$e
ma'or $imsel(
Cabrera v. CA
Facts: 2$e =rovincial Boar! o( Catan!%anes a!o&te! -esol%tion No.
1C8 closing t$e ol! roa! lea!ing to t$e ne, Ca&itol B%il!ing o( t$is
&rovince to tra((ic an! giving t$e o,ners o( t$e &ro&erties traverse!
b' t$e ne, roa! e.%al area as &er s%rve' b' t$e Hig$,a' District
3ngineerHs o((ice (rom t$e ol! roa! a!9acent to t$e res&ective
remaining &ortion o( t$eir &ro&erties. =%rs%ant t$ereto Dee!s o(
34c$ange ,ere e4ec%te! %n!er ,$ic$ t$e =rovince o( Catan!%anes
conve'e! to -eme!ios -. Baga!iong Fre!es,in!o F. #lcala 3lena
). Latorre Bal!omero 2olentino 3%logia 2. #le9an!ro #ngeles ).
Kargas an! 7%an ). -e'es &ortions o( t$e close! roa! in e4c$ange
(or t$eir o,n res&ective &ro&erties on ,$ic$ ,as s%bse.%entl' lai!
a ne, concrete roa! lea!ing to t$e Ca&itol B%il!ing. *n 1878 &art o(
t$e nort$ern en! o( t$e ol! roa! (ronting t$e &etitionerHs $o%se ,as
&lante! to vegetables in 1877 b' 3%logia #le9an!ro. #nselmo =eRa
,$o $a! bo%g$t #ngeles KargasHs s$are also in t$e same &art o(
t$e roa! converte! it into a &igger' (arm. Learning abo%t
-esol%tion 1C8 t$e &etitioner (ile! on December /8 1878 a
com&laint ,it$ t$e Co%rt o( First *nstance o( Catan!%anes (or
"-estoration o( =%blic -oa! an!?or #batement o( N%isance
#nn%lment o( -esol%tions an! Doc%ments ,it$ Damages." He
allege! t$at t$e lan! (ronting $is $o%se ,as a &%blic roa! o,ne! b'
t$e =rovince o( Catan!%anes in its governmental ca&acit' an!
t$ere(ore be'on! t$e commerce o( man. He conten!e! t$at
-esol%tion No. 1C8 an! t$e !ee!s o( e4c$ange ,ere invali! as so
too ,as t$e clos%re o( t$e nort$ern &ortion o( t$e sai! roa!.
*n a !ecision !ate! November /1 1885 7%!ge Graciano =. Ga'a&a
7r. ,$ile $ol!ing t$at t$e lan! in .%estion ,as not a !eclare! &%blic
roa! b%t a mere "&assage,a'" or "s$ortDc%t" nevert$eless
s%staine! t$e a%t$orit' o( t$e &rovincial boar! to enact -esol%tion
No. 1C8 %n!er e4isting la,. 1 #&&eal ,as ta+en to t$e res&on!ent
co%rt / ,$ic$ (o%n! t$at t$e roa! ,as a &%blic roa! an! not a trail
b%t 9%st t$e same also %&$el! -esol%tion 1C8. *t !eclare!:
=%rs%ant to -e&%blic #ct No. C18C m%nici&al a%t$orities can close
s%b9ect to t$e a&&roval or !irection o( t$e =rovincial Boar!
t$oro%g$(ares %n!er )ection //0G o( t$e -evise! #!ministrative
Co!e. #lt$o%g$ in t$is case t$e roa! ,as not close! b' t$e
m%nici&alit' o( Catan!%anes b%t b' t$e &rovincial boar! o(
Catan!%anes t$e clos%re nevert$eless is vali! since it ,as
or!ere! b' t$e a&&roving a%t$orit' itsel(. Ho,ever ,$ile it co%l!
!o so t$e &rovincial government o( Catan!%anes co%l! close t$e
roa! onl' i( t$e &ersons &re9%!ice! t$ereb' ,ere in!emni(ie!
)ection //0G o( t$e -evise! #!ministrative Co!e being ver' e4&licit
on t$is.
Be(ore %s no, t$e &etitioner insists t$at )ec. //0G is not
a&&licable beca%se -esol%tion No. 1C8 is not an or!er (or t$e
clos%re o( t$e roa! in .%estion b%t an a%t$orit' to barter or
e4c$ange it ,it$ &rivate &ro&erties. He maintains t$at t$e &%blic
roa! ,as o,ne! b' t$e &rovince in its governmental ca&acit' an!
,it$o%t a &rior or!er o( clos%re co%l! not be t$e s%b9ect o( a
barter. Control over &%blic roa!s $e insists is ,it$ Congress an!
not ,it$ t$e &rovincial boar!.
05
2$e &etitioner alleges t$at t$e clos%re o( t$e roa! $as es&eciall'
in9%re! $im an! $is (amil' as t$e' can no longer %se it in going to
t$e national roa! lea!ing to t$e ol! ca&itol b%il!ing b%t m%st
instea! &ass t$ro%g$ a small &assage,a'. For s%c$ inconvenience
$e is entitle! to !amages in accor!ance ,it$ la,.
*ss%e: 6ON t$e &rovincial boar! can or!er t$e clos%re o( a roa! an!
%se? conve' it (or ot$er &%r&oses. :3).
2$e a%t$orit' o( t$e &rovincial boar! to close t$at roa! an!
%se or conve' it (or ot$er &%r&oses is !erive! (rom t$e
(ollo,ing &rovisions o( -e&%blic #ct No. C18C in relation to
)ection //0G o( t$e -evise! #!ministrative Co!e: -.#. No.
C18C )ection 11 ;**< ;a<: **. 2$e (ollo,ing actions b'
m%nici&al o((icials or m%nici&al co%ncils as &rovi!e! (or in
t$e &ertinent sections o( t$e -evise! #!ministrative Co!e
s$all ta+e e((ect ,it$o%t t$e nee! o( a&&roval or !irection
(rom an' o((icial o( t$e national government: =rovi!e! 2$at
s%c$ actions s$all be s%b9ect to a&&roval or !irection b' t$e
=rovincial Boar!: ;a< #%t$orit' to close t$oro%g$(are %n!er
)ection //0GA )ec. //0G. #%t$orit' to close t$oro%g$(are. S
6it$ t$e &rior a%t$oriBation o( t$e De&artment Hea! a
m%nici&al co%ncil ma' close an' m%nici&al roa! street
alle' &ar+ or s.%areA b%t no s%c$ ,a' or &lace a(oresai! or
an' &art t$ereo( s$all be close! ,it$o%t in!emni('ing an'
&erson &re9%!ice! t$ereb'.
=ro&ert' t$%s ,it$!ra,n (rom &%blic servit%!e ma' be %se!
or conve'e! (or an' &%r&ose (or ,$ic$ ot$er real &ro&ert'
belonging to t$e m%nici&alit' mig$t be la,(%ll' %se! or
conve'e!.
Ceb% O4'gen an! #cet'lene Co. *nc. v. Bercilles: clos%re o(
a cit' street is ,it$in t$e &o,ers o( t$e cit' co%ncil %n!er
t$e -evise! C$arter o( Ceb% Cit'. *t s%staine! t$e
s%bse.%ent sale o( t$e lan! as being in accor!ance not onl'
,it$ t$e c$arter b%t also ,it$ #rticle 0// o( t$e Civil Co!e
,$ic$ &rovi!es: "=ro&ert' o( &%blic !ominion ,$en no
longer inten!e! (or &%blic %se or (or &%blic service s$all
(orm &art o( t$e &atrimonial &ro&ert' o( t$e )tate."
Favis vs. Cit' o( Bag%io: a&&ellant ma' not c$allenge t$e
cit' co%ncilHs act o( ,it$!ra,ing a stri& o( La&%DLa&% )treet
at its !ea! en! (rom &%blic %se an! converting t$e
remain!er t$ereo( into an alle'. 2$ese are acts ,ell ,it$in
t$e ambit o( t$e &o,er to close a cit' street. 2$e cit'
co%ncil it ,o%l! seem to %s is t$e a%t$orit' com&etent to
!etermine ,$et$er or not a certain &ro&ert' is still
necessar' (or &%blic %se. )%c$ &o,er to vacate a street or
alle' is !iscretionar'. #n! t$e !iscretion ,ill not or!inaril'
be controlle! or inter(ere! ,it$ b' t$e co%rts absent a &lain
case o( ab%se or (ra%! or coll%sion. Fait$(%lness to t$e &%blic
tr%st ,ill be &res%me!. )o t$e (act t$at some &rivate
interests ma' be serve! inci!entall' ,ill not invali!ate t$e
vacation or!inance.
6$ile it is tr%e t$at t$e above cases !ealt ,it$ cit' co%ncils
an! not t$e &rovincial boar! t$ere is no reason (or not
a&&l'ing t$e !octrine anno%nce! t$erein to t$e &rovincial
boar! in connection ,it$ t$e clos%re o( &rovincial roa!s. 2$e
&rovincial boar! $as a(ter all t$e !%t' o( maintaining s%c$
roa!s (or t$e com(ort an! convenience o( t$e in$abitants o(
t$e &rovince. Moreover t$is a%t$orit' is in(erable (rom t$e
grant b' t$e national legislat%re o( t$e (%n!s to t$e =rovince
o( Catan!%anes (or t$e constr%ction o( &rovincial roa!s.
2$e lo,er co%rt (o%n! t$e &etitionerHs allegation o( in9%r'
an! &re9%!ice to be ,it$o%t basis beca%se $e $a! "eas'
access an',a' to t$e national roa! (or in (act t$e ve$icles
%se! b' t$e Co%rt an! t$e &arties !%ring t$e oc%lar
ins&ection easil' &asse! an! %se! it reac$ing be'on!
&lainti((Hs $o%se." Ho,ever t$e C# r%le! t$at t$e $e ",as
&re9%!ice! b' t$e clos%re o( t$e roa! ,$ic$ (ormerl' (ronte!
$is $o%se. He an! $is (amil' ,ere %n!o%bte!l'
inconvenience! b' t$e loss o( access to t$eir &lace o(
resi!ence (or ,$ic$ ,e believe t$e' s$o%l! be
com&ensate!."
Favis: 2$e general r%le is t$at one ,$ose &ro&ert' !oes not
ab%t on t$e close! section o( a street $as no rig$t to
com&ensation (or t$e closing or vacation o( t$e street i( $e
still $as reasonable access to t$e general s'stem o( streets.
2$e circ%mstances in some cases ma' be s%c$ as to give a
rig$t to !amages to a &ro&ert' o,ner even t$o%g$ $is
&ro&ert' !oes not ab%t on t$e close! section. B%t to ,arrant
recover' in an' s%c$ case t$e &ro&ert' o,ner m%st s$o,
t$at t$e sit%ation is s%c$ t$at $e $as s%staine! s&ecial
!amages !i((ering in +in! an! not merel' in !egree (rom
t$ose s%staine! b' t$e &%blic generall'.
-ic$mon! v. Cit' o( Hinton : 2$e Constit%tion !oes not
%n!erta+e to g%arantee to a &ro&ert' o,ner t$e &%blic
01
maintenance o( t$e most convenient ro%te to $is !oor. 2$e
la, ,ill not &ermit $im to be c%t o(( (rom t$e &%blic
t$oro%g$(ares b%t $e m%st content $imsel( ,it$ s%c$ ro%te
(or o%tlet as t$e reg%larl' constit%te! &%blic a%t$orit' ma'
!eem most com&atible ,it$ t$e &%blic ,el(are. 6$en $e
ac.%ires cit' &ro&ert' $e !oes so in tacit recognition o(
t$ese &rinci&les. *( s%bse.%ent to $is ac.%isition t$e cit'
a%t$orities aban!on a &ortion o( t$e street to ,$ic$ $is
&ro&ert' is not imme!iatel' a!9acent $e ma' s%((er loss
beca%se o( t$e inconvenience im&ose! b%t t$e &%blic
treas%r' cannot be re.%ire! to recom&ense $im. )%c$ case
is !amn%m abs.%e in9%ria.
&etitioner is not entitle! to !amages beca%se t$e in9%r' $e
$as inc%rre! s%c$ as it is is t$e &rice $e an! ot$ers li+e $im
m%st &a' (or t$e ,el(are o( t$e entire comm%nit'. 2$is is not
a case ,$ere $is &ro&ert' $as been e4&ro&riate! an! $e is
entitle! to 9%st com&ensation. 2$e constr%ction o( t$e ne,
roa! ,as %n!erta+en %n!er t$e general ,el(are cla%se. #s
t$e trial 9%!ge ac%tel' observe! ,$atever inconvenience
t$e &etitioner $as s%((ere! "&ales in signi(icance com&are!
to t$e greater convenience t$e ne, roa! ,$ic$ is ,i!e an!
concrete straig$t to t$e veterans (o%ntain an! !o,n to t$e
&ier $as been giving to t$e &%blic &l%s t$e (act t$at t$e
ne, roa! a!!s bea%t' an! color not onl' to t$e to,n o(
Kirac b%t also to t$e ,$ole &rovince o( Catan!%anes." For
t$e en9o'ment o( t$ose bene(its ever' in!ivi!%al in t$e
&rovince incl%!ing t$e &etitioner m%st be &re&are! to give
$is s$are
*acana# v. Asistio
Facts: MMC Or!inance No. 78D5/ ,as enacte! b' t$e Metro&olitan
Manila Commission !esignating certain cit' an! m%nici&al streets
roa!s an! o&en s&aces as sites (or (lea mar+ets. =%rs%ant t$ereto
t$e Caloocan Cit' ma'or o&ene! %& seven ;7< (lea mar+ets in t$at
cit'. One o( t$ose streets ,as t$e "Heroes !el H8G" ,$ere t$e
&etitioner lives. @&on a&&lication o( ven!ors t$e res&on!ents cit'
ma'or an! cit' engineer iss%e! t$em licenses to con!%ct ven!ing
activities on sai! street. #ntonio MartineB as O*C cit' ma'or o(
Caloocan Cit' ca%se! t$e !emolition o( t$e mar+et stalls on Heroes
!el H8G K. GoBon an! GonBales streets. 2o sto& Ma'or MartineBH
e((orts stallo,ners (ile! an action (or &ro$ibition against t$e Cit' o(
Caloocan t$e O*C Cit' Ma'or an! t$e Cit' 3ngineer an!?or t$eir
!e&%ties &ra'ing t$e co%rt to iss%e a ,rit o( &reliminar' in9%nction
or!ering t$ese cit' o((icials to !iscontin%e t$e !emolition o( t$eir
stalls !%ring t$e &en!enc' o( t$e action..
LC: =* Grante!. B%t &etition ,as later !ismisse!. ;1< Observe! t$at
MMC Or!inance No. 78D5/ e4&ressl' &rovi!es t$at t$e %se o(
certain streets as (lee mar+ets are s%b9ect to t$e a&&roval o( t$e
Metro&olitan Manila Commission. ;/< Fo%n! t$at Heroes !el H8G
GoBon an! GonBales streets are o( &%blic !ominion $ence o%tsi!e
t$e commerce o( man. 2$is means t$at t$e' cannot be alienate! or
lease! or ot$er,ise be t$e s%b9ect matter o( contracts ;M%nici&alit'
o( Cavite vs. -o9as<. )%c$ lease i( ever is n%ll an! voi!. 2$is
&rinci&le ,as s%&&orte! b' Cit' o( Manila vs. Gerar!o Garcia ,$ic$
state! t$at: \2$e &ro&ert' being a &%blic one t$e Manila Ma'ors
!i! not $ave t$e a%t$orit' to give &ermits ,ritten or oral to t$e
s.%atters an! t$at t$e &ermits grante! are t$ere(ore consi!ere!
n%ll an! voi!. ;1< O&ine! t$at t$e o((icials $ave t$e rig$t to
!emolis$ t$e s%b9ect stalls o( t$e &lainti((s more so !%e to )ection
18C &ar. 0 o( Batas =ambansa Blg. 117 ot$er,ise +no,n as t$e
LGC. Ho,ever s$ortl' a(ter t$e LC !ecision came o%t t$e cit'
a!ministration in Caloocan Cit' c$ange! $an!s. Cit' Ma'or #sistio
7r. as s%ccessor o( Ma'or MartineB !i! not &%rs%e t$e latterHs
&olic' o( clearing an! cleaning %& t$e cit' streets. *nvo+ing t$e trial
co%rtHs !ecision in Civil Case No. CD1/8/1 Dacana' ,rote a letter
to Ma'or #sistio 7r. calling $is attention to t$e illegall'Dconstr%cte!
stalls on Heroes !el H8G )treet an! as+e! (or t$eir !emolition.
Follo,e! %& b%t to no avail. Hence t$is case.
*ss%e: 6ON &%blic streets or t$oro%g$(ares ma' be lease! or
license! to mar+et stall$ol!ers b' virt%e o( a cit' or!inance or
resol%tion o( t$e Metro Manila Commission. NO.
2$ere is no !o%bt t$at t$e !is&%te! areas (rom ,$ic$ t$e
&rivate res&on!entsH mar+et stalls are so%g$t to be evicte!
are &%blic streets as (o%n! b' t$e trial co%rt in Civil Case
No. CD1/8/1. # &%blic street is &ro&ert' (or &%blic %se $ence
o%tsi!e t$e commerce o( man. Being o%tsi!e t$e commerce
o( man it ma' not be t$e s%b9ect o( lease or ot$er contract.
#s t$e stall$ol!ers &a' (ees to t$e Cit' Government (or t$e
rig$t to occ%&' &ortions o( t$e &%blic street t$e Cit'
Government contrar' to la, $as been leasing &ortions o(
t$e streets to t$em. )%c$ leases or licenses are n%ll an!
voi! (or being contrar' to la,. 2$e rig$t o( t$e &%blic to %se
t$e cit' streets ma' not be bargaine! a,a' t$ro%g$
0/
contract. 2$e interests o( a (e, s$o%l! not &revail over t$e
goo! o( t$e greater n%mber in t$e comm%nit' ,$ose $ealt$
&eace sa(et' goo! or!er an! general ,el(are t$e
res&on!ent cit' o((icials are %n!er legal obligation to
&rotect.
2$e 34ec%tive Or!er iss%e! b' #cting Ma'or -obles
a%t$oriBing t$e %se o( Heroes !el H8G )treet as a ven!ing
area (or stall$ol!ers ,$o ,ere grante! licenses b' t$e cit'
government contravenes t$e general la, t$at reserves cit'
streets an! roa!s (or &%blic %se. Ma'or -oblesH 34ec%tive
Or!er ma' not in(ringe %&on t$e veste! rig$t o( t$e &%blic to
%se cit' streets (or t$e &%r&ose t$e' ,ere inten!e! to serve:
i.e. as arteries o( travel (or ve$icles an! &e!estrians.

Macasiano v. *io:no
Facts: =arana.%e &asse! Or!inance No. 8G )eries o( 1885 ,$ic$
a%t$oriBe! t$e clos%re o( 7. Gabriel G.G. Cr%B Ba'ani$an Lt. Garcia
34tension an! O&ena )treets locate! at Baclaran =araRa.%e Metro
Manila an! t$e establis$ment o( a (lea mar+et t$ereon. 2$e sai!
or!inance ,as a&&rove! b' t$e m%nici&al co%ncil &%rs%ant to MMC
Or!inance No. / )eries o( 1878 a%t$oriBing an! reg%lating t$e %se
o( certain cit' an!?or m%nici&al streets roa!s an! o&en s&aces
,it$in Metro&olitan Manila as sites (or (lea mar+et an!?or ven!ing
areas %n!er certain terms an! con!itions.
On 7%l' /5 1885 t$e Metro&olitan Manila #%t$orit' a&&rove!
Or!inance No. 8G s. 1885 o( t$e m%nici&al co%ncil o( res&on!ent
m%nici&alit' s%b9ect to t$e (ollo,ing con!itions: 1. 2$at t$e
a(orename! streets are not %se! (or ve$ic%lar tra((ic an! t$at t$e
ma9orit' o( t$e resi!ents !o not o&&ose t$e establis$ment o( t$e
(lea mar+et?ven!ing areas t$ereonA /. 2$at t$e /Dmeter mi!!le
roa! to be %se! as (lea mar+et?ven!ing area s$all be mar+e!
!istinctl' an! t$at t$e / meters on bot$ si!es o( t$e roa! s$all be
%se! b' &e!estriansA 1. 2$at t$e time !%ring ,$ic$ t$e ven!ing
area is to be %se! s$all be clearl' !esignate!A 0. 2$at t$e %se o(
t$e ven!ing areas s$all be tem&orar' an! s$all be close! once t$e
reclaime! areas are !evelo&e! an! !onate! b' t$e =%blic 3state
#%t$orit'.
On 7%ne /5 1885 t$e m%nici&al co%ncil o( =araRa.%e iss%e! a
resol%tion a%t$oriBing =araRa.%e Ma'or 6al(ri!o N. Ferrer to enter
into contract ,it$ an' service coo&erative (or t$e establis$ment
o&eration maintenance an! management o( (lea mar+ets an!?or
ven!ing areas.
On #%g%st 8 1885 res&on!ent m%nici&alit' an! res&on!ent
=alan'ag a service coo&erative entere! into an agreement
,$ereb' t$e latter s$all o&erate maintain an! manage t$e (lea
mar+et in t$e a(orementione! streets ,it$ t$e obligation to remit
!%es to t$e treas%r' o( t$e m%nici&al government o( =araRa.%e.
Conse.%entl' mar+et stalls ,ere &%t %& b' res&on!ent =alan'ag
on t$e sai! streets.
On )e&tember 11 1885 &etitioner Brig. Gen. Macasiano =N=
)%&erinten!ent o( t$e Metro&olitan 2ra((ic Comman! or!ere! t$e
!estr%ction an! con(iscation o( stalls along G.G. Cr%B an! 7. Gabriel
)t. in Baclaran. 2$ese stalls ,ere later ret%rne! to res&on!ent
=alan'ag.
On October 1G 1885 &etitioner Brig. General Macasiano ,rote a
letter to res&on!ent =alan'ag giving t$e latter ten ;15< !a's to
!iscontin%e t$e (lea mar+etA ot$er,ise t$e mar+et stalls s$all be
!ismantle!.
Hence on October /1 1885 res&on!ents m%nici&alit' an!
=alan'ag (ile! ,it$ t$e trial co%rt a 9oint &etition (or &ro$ibition an!
man!am%s ,it$ !amages an! &ra'er (or &reliminar' in9%nction to
,$ic$ t$e &etitioner (ile! $is memoran!%m?o&&osition to t$e
iss%ance o( t$e ,rit o( &reliminar' in9%nction.
On October /0 1885 t$e trial co%rt iss%e! a tem&orar' restraining
or!er to en9oin &etitioner (rom en(orcing $is letterDor!er o( October
1G 1885 &en!ing t$e $earing on t$e motion (or ,rit o( &reliminar'
in9%nction.
On December 17 1885 t$e trial co%rt iss%e! an or!er %&$ol!ing
t$e vali!it' o( Or!inance No. 8G s. 1885 o( t$e M%nici&alit'H o(
=araRa.%e an! en9oining &etitioner Brig. Gen. Macasiano (rom
en(orcing $is letterDor!er against res&on!ent =alan'ag.
*ss%e: 6ON t$e or!inance a%t$oriBing t$e (lea mar+ets on &%blic
streets is vali! NO.
2$e &ro&ert' o( &rovinces cities an! m%nici&alities is
!ivi!e! into &ro&ert' (or &%blic %se an! &atrimonial &ro&ert'
;#rt. 0/1 Civil Co!e<. #s to ,$at consists o( &ro&ert' (or
&%blic %se #rticle 0/0 o( Civil Co!e states: #rt. 0/0.
=ro&ert' (or &%blic %se in t$e &rovinces cities an!
m%nici&alities consists o( t$e &rovincial roa!s cit' streets
t$e s.%ares (o%ntains &%blic ,aters &romena!es an!
&%blic ,or+s (or &%blic service &ai! (or b' sai! &rovinces
cities or m%nici&alities. #ll ot$er &ro&ert' &ossesse! b' an'
01
o( t$em is &atrimonial an! s$all be governe! b' t$is Co!e
,it$o%t &re9%!ice to t$e &rovisions o( s&ecial la,s.
7. Gabriel G.G. Cr%B Ba'ani$an Lt. Garcia 34tension an!
O&ena streets are local roa!s %se! (or &%blic service an! are
t$ere(ore consi!ere! &%blic &ro&erties o( res&on!ent
m%nici&alit'. =ro&erties o( t$e local government ,$ic$ are
!evote! to &%blic service are !eeme! &%blic an! are %n!er
t$e absol%te control o( Congress. Hence local governments
$ave no a%t$orit' ,$atsoever to control or reg%late t$e %se
o( &%blic &ro&erties %nless s&eci(ic a%t$orit' is veste! %&on
t$em b' Congress. One s%c$ e4am&le o( t$is a%t$orit' given
b' Congress to t$e local governments is t$e &o,er to close
roa!s as &rovi!e! in )ection 15 C$a&ter ** o( t$e LGC ,$ic$
states: )ec. 15. Clos%re o( roa!s. D # LG@ ma' li+e,ise
t$ro%g$ its $ea! acting &%rs%ant to a resol%tion o( its
sangg%niang an! in accor!ance ,it$ e4isting la, an! t$e
&rovisions o( t$is Co!e close an' baranga' m%nici&al cit'
or &rovincial roa! street alle' &ar+ or s.%are. No s%c$ ,a'
or &lace or an' &art o( t$ereo( s$all be close ,it$o%t
in!emni('ing an' &erson &re9%!ice! t$ereb'. # &ro&ert'
t$%s ,it$!ra,n (rom &%blic %se ma' be %se! or conve'e!
(or an' &%r&ose (or ,$ic$ ot$er real &ro&ert' belonging to
t$e local %nit concerne! mig$t be la,(%ll' %se! or
conve'e!.
Ho,ever t$e a(orestate! legal &rovision ,$ic$ gives
a%t$orit' to LG@s to close roa!s an! ot$er similar &%blic
&laces s$o%l! be rea! an! inter&rete! in accor!ance ,it$
basic &rinci&les alrea!' establis$e! b' la,. 2$ese basic
&rinci&les $ave t$e e((ect o( limiting s%c$ a%t$orit' o( t$e
&rovince cit' or m%nici&alit' to close a &%blic street or
t$oro%g$(are. #rticle 0/0 o( t$e Civil Co!e la's !o,n t$e
basic &rinci&le t$at &ro&erties o( &%blic !ominion !evote! to
&%blic %se an! ma!e available to t$e &%blic in general are
o%tsi!e t$e commerce o( man an! cannot be !is&ose! o( or
lease! b' t$e LG@ to &rivate &ersons. #si!e (rom t$e
re.%irement o( !%e &rocess ,$ic$ s$o%l! be com&lie! ,it$
be(ore closing a roa! street or &ar+ t$e clos%re s$o%l! be
(or t$e sole &%r&ose o( ,it$!ra,ing t$e roa! or ot$er &%blic
&ro&ert' (rom &%blic %se ,$en circ%mstances s$o, t$at
s%c$ &ro&ert' is no longer inten!e! or necessar' (or &%blic
%se or &%blic service. 6$en it is alrea!' ,it$!ra,n (rom
&%blic %se t$e &ro&ert' t$en becomes &atrimonial &ro&ert'
o( t$e LG@ concerne! ;#rticle 0// Civil Co!eA Ceb% O4'gen
etc. et al. v. Bercilles et al. G.-. No. LDD05070 #%g%st /8
187C GG )C-# 081<. *t is onl' t$en t$at t$e res&on!ent
m%nici&alit' can "%se or conve' t$em (or an' &%r&ose (or
,$ic$ ot$er real &ro&ert' belonging to t$e local %nit
concerne! mig$t be la,(%ll' %se! or conve'e!" in
accor!ance ,it$ t$e last sentence o( )ection 15 C$a&ter **
o( Blg. 117 +no,n as LGC. *n one case t$e Cit' Co%ncil o(
Ceb% t$ro%g$ a resol%tion !eclare! t$e terminal roa! o( M.
Borces )treet Mabolo Ceb% Cit' as an aban!one! roa! t$e
same not being incl%!e! in t$e Cit' Develo&ment =lan.
2$erea(ter t$e Cit' Co%ncil &asses anot$er resol%tion
a%t$oriBing t$e sale o( t$e sai! aban!one! roa! t$ro%g$
&%blic bi!!ing. 6e $el! t$erein t$at t$e Cit' o( Ceb% is
em&o,ere! to close a cit' street an! to vacate or ,it$!ra,
t$e same (rom &%blic %se. )%c$ ,it$!ra,n &ortion becomes
&atrimonial &ro&ert' ,$ic$ can be t$e ob9ect o( an or!inar'
contract ;Ceb% O4'gen an! #cet'lene Co. *nc. v. Bercilles
et al. G.-. No.
e
LD05070 #%g%st /8 187C GG )C-# 081<.
Ho,ever t$ose roa!s an! streets ,$ic$ are available to t$e
&%blic in general an! or!inaril' %se! (or ve$ic%lar tra((ic are
still consi!ere! &%blic &ro&ert' !evote! to &%blic %se. *n
s%c$ case t$e local government $as no &o,er to %se it (or
anot$er &%r&ose or to !is&ose o( or lease it to &rivate
&ersons.
3ven ass%ming in gratia arg%menti t$at res&on!ent
m%nici&alit' $as t$e a%t$orit' to &ass t$e !is&%te!
or!inance t$e same cannot be vali!l' im&lemente!
beca%se it cannot be consi!ere! a&&rove! b' t$e
Metro&olitan Manila #%t$orit' !%e to nonDcom&liance b'
res&on!ent m%nici&alit' o( t$e con!itions im&ose! b' t$e
(ormer (or t$e a&&roval o( t$e or!inance.
-es&on!ent m%nici&alit' $as not s$o,n an' iota o( &roo(
t$at it $as com&lie! ,it$ t$e (oregoing con!itions &rece!ent
to t$e a&&roval o( t$e or!inance. 2$e allegations o(
res&on!ent m%nici&alit' t$at t$e close! streets ,ere not
%se! (or ve$ic%lar tra((ic an! t$at t$e ma9orit' o( t$e
resi!ents !o not o&&ose t$e establis$ment o( a (lea mar+et
on sai! streets are %ns%&&orte! b' an' evi!ence t$at ,ill
s$o, t$at t$is (irst con!ition $as been met. Li+e,ise t$e
!esignation b' res&on!ents o( a time sc$e!%le !%ring ,$ic$
t$e (lea mar+et s$all o&erate is absent.
00
F%rt$er it is o( &%blic notice t$at t$e streets along Baclaran
area are congeste! ,it$ &eo&le $o%ses an! tra((ic bro%g$t
abo%t b' t$e &roli(eration o( ven!ors occ%&'ing t$e streets.
2o license an! allo, t$e establis$ment o( a (lea mar+et
along 7. Gabriel G.G. Cr%B Ba'ani$an Lt. Garcia 34tension
an! O&ena streets in Baclaran ,o%l! not $el& in solving t$e
&roblem o( congestion.
2$e &o,ers o( a LG@ are not absol%te. 2$e' are s%b9ect to
limitations lai! !o,n b' toe Constit%tion an! t$e la,s s%c$
as o%r Civil Co!e. Moreover t$e e4ercise o( s%c$ &o,ers
s$o%l! be s%bservient to &aramo%nt consi!erations o( $ealt$
an! ,ellDbeing o( t$e members o( t$e comm%nit'. 3ver'
LG@ $as t$e s,orn obligation to enact meas%res t$at ,ill
en$ance t$e &%blic $ealt$ sa(et' an! convenience
maintain &eace an! or!er an! &romote t$e general
&ros&erit' o( t$e in$abitants o( t$e local %nits. Base! on t$is
ob9ective t$e local government s$o%l! re(rain (rom acting
to,ar!s t$at ,$ic$ mig$t &re9%!ice or a!versel' a((ect t$e
general ,el(are.
Dacana' case: t$e general &%blic $ave a legal rig$t to
!eman! t$e !emolition o( t$e illegall' constr%cte! stalls in
&%blic roa!s an! streets an! t$e o((icials o( res&on!ent
m%nici&alit' $ave t$e corres&on!ing !%t' arising (rom
&%blic o((ice to clear t$e cit' streets an! restore t$em to
t$eir s&eci(ic &%blic &%r&ose. 2$e instant case as ,ell as t$e
Dacana' case involves an or!inance ,$ic$ is voi! an!
illegal (or lac+ o( basis an! a%t$orit' in la,s a&&licable
!%ring its time. Ho,ever at t$is &oint 6e (in! it ,ort$' to
note t$at Batas =ambansa Blg. 117 +no,n as Local
Government Lo!e $as alrea!' been re&eale! b' -e&%blic
#ct No. 71G5 +no,n as LGC o( 1881 ,$ic$ too+ e((ect on
7an%ar' 1 188/. )ection C;!< o( t$e ne, Co!e &rovi!es t$at
rig$ts an! obligations e4isting on t$e !ate o( e((ectivit' o(
t$e ne, Co!e an! arising o%t o( contracts or an' ot$er
so%rce o( &restation involving a LG@ s$all be governe! b'
t$e original terms an! con!itions o( t$e sai! contracts or t$e
la, in (orce at t$e time s%c$ rig$ts ,ere veste!.
Pilapil v. CA
Facts: 2$e Colomi!as o,n a &arcel o( lan! ,$ic$ $as a roa! rig$t o(
,a' lea!ing to t$e national $ig$,a'. )%c$ roa! en!s at t$e =ila&ils>
lan!. #ccor!ing to t$e Colomi!as a camino vecinal lea!ing to t$e
national $ig$,a' e4ists ,$ile t$e =ila&ils !en' s%c$ (act. 2$e
Colomi!as trie! to im&rove t$e camino (or t$e &%blic>s convenience
b%t s%c$ ,as met ,it$ t$reats (rom t$e =ila&ils. 2$e =ila&ils also
t$reatene! to (ence o(( t$e camino vecinal. 2$e Colomi!as t$en
(ile! a &etition (or in9%nction an! !amages ,it$ a &ra'er (or a ,rit
o( =M or &ro$ibitor' in9%nction ,$ic$ so%g$t to &revent t$e =ila&ils
(rom $arassing t$em as ,ell as (encing o(( t$e camino vecinal. 2$e
=ila&ils also (ile! a case against t$e Colomi!as alleging t$at no s%c$
camino e4ists on t$eir lan!. *n trial t$e M%nici&al =lanning an!
Develo&ment Coor!inator o( Liloan testi(ie! t$at accor!ing to t$e
Boning ma& o( Liloan t$e camino !oes not traverse b%t r%ns along
t$e si!e o( t$e =ila&ils> &ro&ert'

*ss%e: 6ON t$e M%nici&alit' o( Liloan $as a%t$orit' to close or
aban!on t$e camino vecinal. :3).
*t is be'on! !is&%te t$at t$e establis$ment clos%re or
aban!onment o( t$e camino vecinal is t$e sole &rerogative
o( t$e M%nici&alit' o( Liloan. No &rivate &art' can inter(ere
,it$ s%c$ a rig$t. 2$%s even i( 6e are to agree ,it$ bot$
t$e trial co%rt an! &%blic res&on!ent t$at Longa+it an!
=e&ito ,ere telling t$e tr%t$ t$e !ecision o( t$e M%nici&alit'
o( Liloan ,it$ res&ect to t$e sai! camino vecinal in sitio
Ba$a+ m%st &revail. *t is t$%s &ointless to concentrate on
t$e testimonies o( bot$ ,itnesses since t$e same $ave (or
all intents an! &%r&oses become irrelevant.
2$e &ro&ert' o( &rovinces cities an! m%nici&alities is
!ivi!e! into &ro&ert' (or &%blic %se an! &atrimonial
&ro&ert'. 2$e (irst consists o( t$e &rovincial roa!s cit'
streets m%nici&al streets s.%ares (o%ntains &%blic ,aters
&romena!es an! &%blic ,or+s (or &%blic service &ai! (or b'
t$e sai! &rovinces cities or m%nici&alities. 2$e' are
governe! b' t$e same &rinci&les as &ro&ert' o( &%blic
!ominion o( t$e same c$aracter. 0/ @n!er t$e a&&licable
la, in t$is case Batas =ambansa Blg. 117 ;2$e LGC< t$e
)angg%niang Ba'an t$e legislative bo!' o( t$e m%nici&alit'
01 $a! t$e &o,er to a!o&t Boning an! s%b!ivision
or!inances or reg%lations s%b9ect to t$e &rovisions o(
e4isting la,s an! to &rovi!e (or t$e constr%ction
im&rovement re&air an! maintenance o( m%nici&al streets
aven%es alle's si!e,al+s bri!ges &ar+s an! ot$er &%blic
&laces reg%late t$e %se t$ereo( an! &ro$ibit t$e
constr%ction or &lacing o( obstacles or encroac$ments on
0C
t$em 00 )ection 15 C$a&ter / 2itle One Boo+ * o( sai!
Co!e &rovi!e!: 0C )ec. 15. Clos%re o( roa!s. S # LG@ ma'
li+e,ise t$ro%g$ its $ea! acting &%rs%ant to a resol%tion o(
its )angg%niang an! in accor!ance ,it$ e4isting la, an! t$e
&rovisions o( t$is Co!e close an' baranga' m%nici&al cit'
or &rovincial roa! street alle' &ar+ or s.%are. No s%c$ ,a'
or &lace or an' &art t$ereo( s$all be close! ,it$o%t
in!emni('ing an' &erson &re9%!ice! t$ereb'. # &ro&ert'
t$%s ,it$!ra,n (rom &%blic %se ma' be %se! or conve'e!
(or an' &%r&ose (or ,$ic$ ot$er real &ro&ert' belonging to
t$e local %nit concerne! mig$t be la,(%ll' %se! or
conve'e!.
# camino vecinal is a m%nici&al roa!. *t is also &ro&ert' (or
&%blic %se. =%rs%ant t$ere(ore to t$e above &o,ers o( a
LG@ t$e M%nici&alit' o( Liloan $a! t$e %nassailable
a%t$orit' to ;a< &re&are an! a!o&t a lan! %se ma& ;b<
&rom%lgate a Boning or!inance ,$ic$ ma' consi!er among
ot$er t$ings t$e m%nici&al roa!s to be constr%cte!
maintaine! im&rove! or re&aire! an! ;c< close an'
m%nici&al roa!.
*n t$e instant case t$e M%nici&alit' o( Liloan t$ro%g$ t$e
)angg%niang Ba'an a&&rove! t$e @rban Lan! @se =lanA t$is
&lan ,as !%l' signe! b' t$e M%nici&al Ma'or ;34$ibit "1"<.
B' !oing so t$e sai! legislative bo!' !etermine! among
ot$ers t$e location o( t$e camino vecinal in sitio Ba$a+. 2$e
%nreb%tte! testimon' o( 3ngineer 3&i(anio 7or!an s$o,s
t$at t$e same ,as a&&rove! b' t$e )angg%niang Ba'an.
2$e rel%ctance o( t$e trial co%rt an! &%blic res&on!ent to
give !%e ,eig$t to t$e testimon' o( 3ngineer 7or!an
stemme! (rom a !o%bt as to $is a%t$orit' to &re&are t$e
&lan. 2$ere is also some con(%sion regar!ing t$e &art' ,$o
!irecte! $im to !o so. Bot$ co%rts observe! t$at ,$ile on
!irect e4amination $e testi(ie! t$at t$e )angg%niang Ba'an
instr%cte! $im to &re&are t$e Boning ma& 07 !%ring crossD
e4amination $e state! t$at $e &re&are! it %&on t$e Ma'orHs
oral or!er. 08 )%c$ inconsistenc' is .%ite trivial an! $ence
!i! not a((ect t$e &re&aration an! s%bse.%ent a&&roval o(
t$e Boning ma&. *n t$e (irst &lace %n!er t$e a&&licable la,
t$e ma'or ,as bot$ a member an! t$e &resi!ing o((icer o(
t$e )angg%niang Ba'an. )econ!l' ,$at investe! t$e Boning
ma& ,it$ legal e((ect ,as neit$er t$e a%t$orit' o( t$e &erson
,$o or!ere! its &re&aration nor t$e a%t$orit' o( t$e &erson
,$o act%all' &re&are! it b%t its a&&roval b' t$e
)angg%niang Ba'an. F%rt$ermore ,it$ or ,it$o%t t$e or!er
o( t$e Ma'or or )angg%niang Ba'an 3ngineer 7or!an as t$e
t$en M%nici&al =lanning an! Develo&ment Coor!inator $a!
t$e a%t$orit' to &re&are t$e &lan an! a!mit it to t$e
)angg%niang Ba'an (or a&&roval. #mong $is (%nctions %n!er
t$e governing la, at t$e time ,as to (orm%late an
integrate! economic social &$'sical an! ot$er
!evelo&ment ob9ectives an! &olicies (or t$e consi!eration
an! a&&roval o( t$e sangg%niang ba'an an! t$e m%nici&al
ma'or an! &re&are m%nici&al com&re$ensive &lans an!
ot$er !evelo&ment &lanning !oc%ment. C5 2$%s even i( $e
$a! not been instr%cte! b' an'one to &re&are t$e ma& $e
co%l! nevert$eless on $is o,n initiative an! b' virt%e o( $is
(%nctions ma+e one. 2$e trial co%rt an! &%blic res&on!ent
t$en (aile! to a&&reciate t$e role an! (%nction o( a M%nici&al
=lanning an! Develo&ment Coor!inator.
#s (%rt$er !eclare! b' 3ngineer 7or!an t$is camino vecinal
in sitio Ba$a+ "&asses t$e si!e o( t$e lan! o( )ocrates =ila&il.
2$is is t$e &ro&ose! roa! lea!ing to t$e national $ig$,a'."
2$e Colomi!as &resente! no reb%ttal ,itness to s$o, t$at
b' t$e a&&roval o( t$e Boning ma& b' t$e )angg%niang
Ba'an t$e' ,ere e((ectivel' !e&rive! o( access to t$e
national $ig$,a' (rom t$eir &ro&ert'. O( co%rse t$e' ma'
arg%e t$at t$e Boning ma& ,as &re&are! (or an! a&&rove!
b' t$e )angg%niang Ba'an a(ter t$e (iling o( t$eir &etition in
Civil Case No. -D/571/. Be t$at as it ma' t$is &re&aration
an! a&&roval clearl' a s%&ervening event ,as relie! %&on
intro!%ce! in evi!ence ,it$o%t ob9ection on t$e &art o( t$e
Colomi!as an! eval%ate! b' t$e trial co%rt. *n s$ort t$e
latter allo,e! t$e iss%e raise! b' t$e s%&ervening event to
be trie!. 2$ere ,as not$ing &roce!%rall' ob9ectionable to
t$isA on t$e contrar' )ection C -%le 15 o( t$e -%les o(
Co%rt allo,s it. )ai! section rea!s: )ec. C. #men!ment to
con(orm to or a%t$oriBe &resentation o( evi!ence. S 6$en
iss%es not raise! b' t$e &lea!ings are trie! b' e4&ress or
im&lie! consent o( t$e &arties t$e' s$all be treate! in all
res&ects as i( t$e' $a! been raise! in t$e &lea!ings. )%c$
amen!ment o( t$e &lea!ings as ma' be necessar' to ca%se
t$em to con(orm to t$e evi!ence an! to raise t$ese iss%es
ma' be ma!e %&on motion o( an' &art' at an' time even
a(ter 9%!gment b%t (ail%re to amen! !oes not a((ect t$e
0G
res%lt o( t$e trial o( t$ese iss%es. *( evi!ence is ob9ecte! to
at t$e trial on t$e gro%n! t$at it is not ,it$in t$e iss%es
ma!e b' t$e &lea!ings t$e co%rt ma' allo, t$e &lea!ing to
be amen!e! an! s$all !o so (reel' ,$en t$e &resentation on
t$e merits o( t$e action ,ill be s%bserve! t$ereb' an! t$e
ob9ecting &art' (ails to satis(' t$e co%rt t$at t$e a!mission
o( s%c$ evi!ence ,o%l! &re9%!ice $im in maintaining $is
action or !e(ense %&on t$e merits. 2$e co%rt ma' grant a
contin%ance to enable t$e ob9ecting &art' to meet s%c$
evi!ence.
)%c$ s%&ervening (act !%l' &rove! to be an o((icial act o(
t$e M%nici&alit' o( Liloan bin!s not onl' t$e =ila&ils an! t$e
Colomi!as b%t also t$e general &%blic. 2$e solemn
!eclarations o( ol! &eo&le li+e )esenan!o Longa+it an!
Florentino =e&ito cannot overt%rn t$e !ecision o( t$e
M%nici&alit' o( Liloan.
MM*A v. Bel;Air
Facts: B#K# is t$e registere! o,ner o( Ne&t%ne )treet a roa!
insi!e BelD#ir Killage. Ne&t%ne r%ns &arallel to Mala'aan #ven%e a
national roa! o&en to t$e general &%blic. Divi!ing t$e t,o ;/<
streets is a concrete &erimeter ,all a&&ro4imatel' (i(teen ;1C< (eet
$ig$. 2$e ,estern en! o( Ne&t%ne )treet intersects Nicanor Garcia
(ormerl' -e&oso )treet a s%b!ivision roa! o&en to &%blic ve$ic%lar
tra((ic ,$ile its eastern en! intersects Ma+ati #ven%e a national
roa!. Bot$ en!s o( Ne&t%ne )treet are g%ar!e! b' iron gates.
On December 15 188C res&on!ent receive! (rom &etitioner
t$ro%g$ its C$airman a notice !ate! December // 188C
re.%esting res&on!ent to o&en Ne&t%ne )treet to &%blic ve$ic%lar
tra((ic starting 7an%ar' / 188G. On t$e same !a' res&on!ent ,as
a&&rise! t$at t$e &erimeter ,all se&arating t$e s%b!ivision (rom
t$e a!9acent Mala'aan #ven%e ,o%l! be !emolis$e!.
On 7an%ar' / 188G res&on!ent instit%te! against &etitioner be(ore
t$e -egional 2rial Co%rt Branc$ 11G Ma+ati Cit' Civil Case No. 8GD
551 (or in9%nction. -es&on!ent &ra'e! (or t$e iss%ance o( a
tem&orar' restraining or!er an! &reliminar' in9%nction en9oining
t$e o&ening o( Ne&t%ne )treet an! &ro$ibiting t$e !emolition o( t$e
&erimeter ,all.
-2C: iss%e! 2-O a(ter !%e $earing t$e trial co%rt !enie! iss%ance
o( a &reliminar' in9%nction.
C#: MMD# $as no a%t$orit' to or!er t$e o&ening o( Ne&t%ne
)treet a &rivate s%b!ivision roa! an! ca%se t$e !emolition o( its
&erimeter ,alls. *t $el! t$at t$e a%t$orit' is lo!ge! in t$e Cit'
Co%ncil o( Ma+ati b' or!inance.
*ss%e: 6ON t$e MMD# $as t$e man!ate to o&en Ne&t%ne )treet to
&%blic tra((ic &%rs%ant to its reg%lator an! &olice &o,ers.
MMD#: it $as t$e a%t$orit' to o&en Ne&t%ne )treet to &%blic
tra((ic beca%se it is an agent o( t$e state en!o,e! ,it$
&olice &o,er in t$e !eliver' o( basic services in Metro
Manila. One o( t$ese basic services is tra((ic management
,$ic$ involves t$e reg%lation o( t$e %se o( t$oro%g$(ares to
ins%re t$e sa(et' convenience an! ,el(are o( t$e general
&%blic. *t is allege! t$at t$e &olice &o,er o( MMD# ,as
a((irme! b' t$is Co%rt in t$e consoli!ate! cases o(
)angalang v. *nterme!iate #&&ellate Co%rt. From t$e
&remise t$at it $as &olice &o,er it is no, %rge! t$at t$ere
is no nee! (or t$e Cit' o( Ma+ati to enact an or!inance
o&ening Ne&t%ne street to t$e &%blic.
=olice &o,er is an in$erent attrib%te o( sovereignt'. *t $as
been !e(ine! as t$e &o,er veste! b' t$e Constit%tion in t$e
legislat%re to ma+e or!ain an! establis$ all manner o(
,$olesome an! reasonable la,s stat%tes an! or!inances
eit$er ,it$ &enalties or ,it$o%t not re&%gnant to t$e
Constit%tion as t$e' s$all 9%!ge to be (or t$e goo! an!
,el(are o( t$e common,ealt$ an! (or t$e s%b9ects o( t$e
same. 2$e &o,er is &lenar' an! its sco&e is vast an!
&ervasive reac$ing an! 9%sti('ing meas%res (or &%blic
$ealt$ &%blic sa(et' &%blic morals an! t$e general ,el(are.
*t bears stressing t$at &olice &o,er is lo!ge! &rimaril' in t$e
National Legislat%re. *t cannot be e4ercise! b' an' gro%& or
bo!' o( in!ivi!%als not &ossessing legislative &o,er. 2$e
National Legislat%re $o,ever ma' !elegate t$is &o,er to
t$e =resi!ent an! a!ministrative boar!s as ,ell as t$e
la,ma+ing bo!ies o( m%nici&al cor&orations or LG@s. Once
!elegate! t$e agents can e4ercise onl' s%c$ legislative
&o,ers as are con(erre! on t$em b' t$e national la,ma+ing
bo!'.
# local government is a "&olitical s%b!ivision o( a nation or
state ,$ic$ is constit%te! b' la, an! $as s%bstantial control
o( local a((airs." 2$e LGC o( 1881 !e(ines a LG@ as a "bo!'
&olitic an! cor&orate" one en!o,e! ,it$ &o,ers as a
&olitical s%b!ivision o( t$e National Government an! as a
cor&orate entit' re&resenting t$e in$abitants o( its territor'.
07
LG@s are t$e &rovinces cities m%nici&alities an!
baranga's. 2$e' are also t$e territorial an! &olitical
s%b!ivisions o( t$e state.
O%r Congress !elegate! &olice &o,er to t$e LG@s in t$e LGC
o( 1881. LG@s e4ercise &olice &o,er t$ro%g$ t$eir
res&ective legislative bo!ies. 2$e legislative bo!' o( t$e
&rovincial government is t$e sangg%niang &anlala,igan
t$at o( t$e cit' government is t$e sangg%niang &anl%ngso!
t$at o( t$e m%nici&al government is t$e sangg%niang ba'an
an! t$at o( t$e baranga' is t$e sangg%niang baranga'. 2$e
LGC o( 1881 em&o,ers t$e sangg%niang &anlala,igan
sangg%niang &anl%ngso! an! sangg%niang ba'an to "enact
or!inances a&&rove resol%tions an! a&&ro&riate (%n!s (or
t$e general ,el(are o( t$e U&rovince cit' or m%nici&alit' as
t$e case ma' beV an! its in$abitants &%rs%ant to )ection 1G
o( t$e Co!e an! in t$e &ro&er e4ercise o( t$e cor&orate
&o,ers o( t$e U&rovince cit' m%nici&alit'V &rovi!e! %n!er
t$e Co!e. 2$e same Co!e gives t$e sangg%niang baranga'
t$e &o,er to "enact or!inances as ma' be necessar' to
!isc$arge t$e res&onsibilities con(erre! %&on it b' la, or
or!inance an! to &romote t$e general ,el(are o( t$e
in$abitants t$ereon."
Metro&olitan or Metro Manila is a bo!' com&ose! o( several
LG@s D i.e. t,elve ;1/< cities an! (ive ;C< m%nici&alities
namel' t$e cities o( Caloocan Manila Man!al%'ong
Ma+ati =asa' =asig W%eBon M%ntinl%&a Las =inas
Mari+ina =arana.%e an! KalenB%ela an! t$e m%nici&alities
o( Malabon Navotas =ateros )an 7%an an! 2ag%ig. 6it$
t$e &assage o( -e&%blic #ct ;-. #.< No. 78/0 U/0V in 188C
Metro&olitan Manila ,as !eclare! as a "s&ecial !evelo&ment
an! a!ministrative region" an! t$e #!ministration o(
"metroD,i!e" basic services a((ecting t$e region &lace!
%n!er "a !evelo&ment a%t$orit'" re(erre! to as t$e MMD#.
"MetroD,i!e services" are t$ose "services ,$ic$ $ave metroD
,i!e im&act an! transcen! local &olitical bo%n!aries or
entail $%ge e4&en!it%res s%c$ t$at it ,o%l! not be viable (or
sai! services to be &rovi!e! b' t$e in!ivi!%al LG@s
com&rising Metro Manila." 2$ere are seven ;7< basic metroD
,i!e services an! t$e sco&e o( t$ese services cover t$e
(ollo,ing: ;1< !evelo&ment &lanningA ;/< trans&ort an!
tra((ic managementA ;1< soli! ,aste !is&osal an!
managementA ;0< (loo! control an! se,erage managementA
;C< %rban rene,al Boning an! lan! %se &lanning an!
s$elter servicesA ;G< $ealt$ an! sanitation %rban &rotection
an! &oll%tion controlA an! ;7< &%blic sa(et'. 2$e basic
service o( trans&ort an! tra((ic management incl%!es t$e
(ollo,ing: ";b< 2rans&ort an! tra((ic management ,$ic$
incl%!e t$e (orm%lation coor!ination an! monitoring o(
&olicies stan!ar!s &rograms an! &ro9ects to rationaliBe t$e
e4isting trans&ort o&erations in(rastr%ct%re re.%irements
t$e %se o( t$oro%g$(ares an! &romotion o( sa(e an!
convenient movement o( &ersons an! goo!sA &rovision (or
t$e mass trans&ort s'stem an! t$e instit%tion o( a s'stem to
reg%late roa! %sersA a!ministration an! im&lementation o(
all tra((ic en(orcement o&erations tra((ic engineering
services an! tra((ic e!%cation &rograms incl%!ing t$e
instit%tion o( a single tic+eting s'stem in Metro&olitan
ManilaA"
2$e sco&e o( t$e MMD#>s (%nction is limite! to t$e !eliver'
o( t$e seven ;7< basic services. One o( t$ese is trans&ort an!
tra((ic management ,$ic$ incl%!es t$e (orm%lation an!
monitoring o( &olicies stan!ar!s an! &ro9ects to rationaliBe
t$e e4isting trans&ort o&erations in(rastr%ct%re
re.%irements t$e %se o( t$oro%g$(ares an! &romotion o(
t$e sa(e movement o( &ersons an! goo!s. *t also covers t$e
mass trans&ort s'stem an! t$e instit%tion o( a s'stem o(
roa! reg%lation t$e a!ministration o( all tra((ic en(orcement
o&erations tra((ic engineering services an! tra((ic e!%cation
&rograms incl%!ing t$e instit%tion o( a single tic+eting
s'stem in Metro Manila (or tra((ic violations. @n!er t$is
service t$e MMD# is e4&ressl' a%t$oriBe! "to set t$e
&olicies concerning tra((ic" an! "coor!inate an! reg%late t$e
im&lementation o( all tra((ic management &rograms." *n
a!!ition t$e MMD# ma' "install an! a!minister a single
tic+eting s'stem" (i4 im&ose an! collect (ines an! &enalties
(or all tra((ic violations.
*t ,ill be note! t$at t$e &o,ers o( t$e MMD# are limite! to
t$e (ollo,ing acts: (orm%lation coor!ination reg%lation
im&lementation &re&aration management monitoring
setting o( &olicies installation o( a s'stem an!
a!ministration. 2$ere is no s'llable in -. #. No. 78/0 t$at
grants t$e MMD# &olice &o,er let alone legislative &o,er.
3ven t$e Metro Manila Co%ncil $as not been !elegate! an'
legislative &o,er. @nli+e t$e legislative bo!ies o( t$e LG@s
08
t$ere is no &rovision in -. #. No. 78/0 t$at em&o,ers t$e
MMD# or its Co%ncil to "enact or!inances a&&rove
resol%tions an! a&&ro&riate (%n!s (or t$e general ,el(are" o(
t$e in$abitants o( Metro Manila. 2$e MMD# is as terme! in
t$e c$arter itsel( a "!evelo&ment a%t$orit'."*t is an agenc'
create! (or t$e &%r&ose o( la'ing !o,n &olicies an!
coor!inating ,it$ t$e vario%s national government agencies
&eo&le>s organiBations nonDgovernmental organiBations an!
t$e &rivate sector (or t$e e((icient an! e4&e!itio%s !eliver'
o( basic services in t$e vast metro&olitan area. #ll its
(%nctions are a!ministrative in nat%re.
Contrar' to &etitioner>s claim t$e t,o )angalang cases !o
not a&&l' to t$e case at bar. Firstl' bot$ involve! Boning
or!inances &asse! b' t$e m%nici&al co%ncil o( Ma+ati an!
t$e MMC. *n t$e instant case t$e basis (or t$e &ro&ose!
o&ening o( Ne&t%ne )treet is containe! in t$e notice o(
December // 188C sent b' &etitioner to res&on!ent B#K#
t$ro%g$ its &resi!ent. 2$e notice !oes not cite an'
or!inance or la, eit$er b' t$e )angg%niang =anl%ngso! o(
Ma+ati Cit' or b' t$e MMD# as t$e legal basis (or t$e
&ro&ose! o&ening o( Ne&t%ne )treet. =etitioner MMD#
sim&l' relie! on its a%t$orit' %n!er its c$arter "to rationaliBe
t$e %se o( roa!s an!?or t$oro%g$(ares (or t$e sa(e an!
convenient movement o( &ersons." -ationaliBing t$e %se o(
roa!s an! t$oro%g$(ares is one o( t$e acts t$at (all ,it$in
t$e sco&e o( trans&ort an! tra((ic management. B' no
stretc$ o( t$e imagination $o,ever can t$is be inter&rete!
as an e4&ress or im&lie! grant o( or!inanceDma+ing &o,er
m%c$ less &olice &o,er. )econ!l' t$e MMD# is not t$e
same entit' as t$e MMC in )angalang. #lt$o%g$ t$e MMC is
t$e (orer%nner o( t$e &resent MMD# an e4amination o(
=resi!ential Decree ;=. D.< No. 8/0 t$e c$arter o( t$e MMC
s$o,s t$at t$e latter &ossesse! greater &o,ers ,$ic$ ,ere
not besto,e! on t$e &resent MMD#.
2$e MMC ,as t$e "central government" o( Metro Manila (or
t$e &%r&ose o( establis$ing an! a!ministering &rograms
&rovi!ing services common to t$e area. #s a "central
government" it $a! t$e &o,er to lev' an! collect ta4es an!
s&ecial assessments t$e &o,er to c$arge an! collect (eesA
t$e &o,er to a&&ro&riate mone' (or its o&eration an! at t$e
same time revie, a&&ro&riations (or t$e cit' an! m%nici&al
%nits ,it$in its 9%ris!iction. *t ,as besto,e! t$e &o,er to
enact or a&&rove or!inances resol%tions an! (i4 &enalties
(or violation o( s%c$ or!inances an! resol%tions. *t also $a!
t$e &o,er to revie, amen! revise or re&eal all or!inances
resol%tions an! acts o( an' o( t$e (o%r ;0< cities an! t$irteen
;11< m%nici&alities com&rising Metro Manila.
*t ,as t$e MMC itsel( t$at &ossesse! legislative &o,ers. #ll
or!inances resol%tions an! meas%res recommen!e! b' t$e
)angg%niang Ba'an ,ere s%b9ect to t$e MMC>s a&&roval.
Moreover t$e &o,er to im&ose ta4es an! ot$er levies t$e
&o,er to a&&ro&riate mone' an! t$e &o,er to &ass
or!inances or resol%tions ,it$ &enal sanctions ,ere veste!
e4cl%sivel' in t$e MMC. 2$%s Metro&olitan Manila $a! a
"central government" i.e. t$e MMC ,$ic$ (%ll' &ossesse!
legislative an! &olice &o,ers. 6$atever legislative &o,ers
t$e com&onent cities an! m%nici&alities $a! ,ere all s%b9ect
to revie, an! a&&roval b' t$e MMC.
@n!er t$e 1887 Constit%tion t$e LG@s became &rimaril'
res&onsible (or t$e governance o( t$eir res&ective &olitical
s%b!ivisions. 2$e MM#>s 9%ris!iction ,as limite! to
a!!ressing common &roblems involving basic services t$at
transcen!e! local bo%n!aries. *t !i! not $ave legislative
&o,er. *ts &o,er ,as merel' to &rovi!e t$e LG@s tec$nical
assistance in t$e &re&aration o( local !evelo&ment &lans.
#n' semblance o( legislative &o,er it $a! ,as con(ine! to a
"revie, Uo(V legislation &ro&ose! b' t$e local legislative
assemblies to ens%re consistenc' among local governments
an! ,it$ t$e com&re$ensive !evelo&ment &lan o( Metro
Manila" an! to "a!vise t$e local governments accor!ingl'."
6$en -.#. No. 78/0 too+ e((ect Metro&olitan Manila
became a "s&ecial !evelo&ment an! a!ministrative region"
an! t$e MMD# a "s&ecial !evelo&ment a%t$orit'" ,$ose
(%nctions ,ere ",it$o%t &re9%!ice to t$e a%tonom' o( t$e
a((ecte! LG@s." 2$e c$aracter o( t$e MMD# ,as clearl'
!e(ine! in t$e legislative !ebates enacting its c$arter.
Clearl' t$e MMD# is not a &olitical %nit o( government. 2$e
&o,er !elegate! to t$e MMD# is t$at given to t$e Metro
Manila Co%ncil to &rom%lgate a!ministrative r%les an!
reg%lations in t$e im&lementation o( t$e MMD#>s (%nctions.
2$ere is no grant o( a%t$orit' to enact or!inances an!
reg%lations (or t$e general ,el(are o( t$e in$abitants o( t$e
metro&olis. *t is t$%s be'on! !o%bt t$at t$e MMD# is not a
LG@ or a &%blic cor&oration en!o,e! ,it$ legislative &o,er.
08
*t is not even a "s&ecial metro&olitan &olitical s%b!ivision" as
contem&late! in )ection 11 #rticle J o( t$e Constit%tion.
2$e creation o( a "s&ecial metro&olitan &olitical s%b!ivision"
re.%ires t$e a&&roval b' a ma9orit' o( t$e votes cast in a
&lebiscite in t$e &olitical %nits !irectl' a((ecte!. -. #. No.
78/0 ,as not s%bmitte! to t$e in$abitants o( Metro Manila
in a &lebiscite. 2$e C$airman o( t$e MMD# is not an o((icial
electe! b' t$e &eo&le b%t a&&ointe! b' t$e =resi!ent ,it$
t$e ran+ an! &rivileges o( a cabinet member. *n (act &art o(
$is (%nction is to &er(orm s%c$ ot$er !%ties as ma' be
assigne! to $im b' t$e =resi!ent ,$ereas in LG@s t$e
=resi!ent merel' e4ercises s%&ervisor' a%t$orit'. 2$is
em&$asiBes t$e a!ministrative c$aracter o( t$e MMD#.
Clearl' t$en t$e MMC %n!er =. D. No. 8/0 is not t$e same
entit' as t$e MMD# %n!er -. #. No. 78/0. @nli+e t$e MMC
t$e MMD# $as no &o,er to enact or!inances (or t$e ,el(are
o( t$e comm%nit'. *t is t$e LG@s acting t$ro%g$ t$eir
res&ective legislative co%ncils t$at &ossess legislative
&o,er an! &olice &o,er. *n t$e case at bar t$e )angg%niang
=anl%ngso! o( Ma+ati Cit' !i! not &ass an' or!inance or
resol%tion or!ering t$e o&ening o( Ne&t%ne )treet $ence
its &ro&ose! o&ening b' &etitioner MMD# is illegal an! t$e
res&on!ent C# !i! not err in so r%ling.
Moa# v. CA
Facts: 2$e )angg%niang Ba'an o( t$e M%nici&alit' o( B%na,an in
#g%san !el )%r &asse! - 01D88 "#%t$oriBing t$e M%nici&al Ma'or
to *nitiate t$e =etition (or 34&ro&riation o( a One ;1< Hectare =ortion
o( Lot No. G118D=lsD0 #long t$e National Hig$,a' O,ne! b'
=ercival Mo!a' (or t$e )ite o( B%na,an Farmers Center an! Ot$er
Government )&orts Facilities." - 01D88 ,as a&&rove! b' t$en
M%nici&al Ma'or #n%ncio C. B%stillo an! transmitte! to t$e
)angg%niang =anlala,igan (or its a&&roval. 2$e )angg%niang
=anlala,igan !isa&&rove! sai! -esol%tion an! ret%rne! it ,it$ t$e
comment t$at "e4&ro&riation is %nnecessar' consi!ering t$at t$ere
are still available lots in B%na,an (or t$e establis$ment o( t$e
government center." B%na,an (ile! a &etition (or 3minent Domain
against &etitioner =ercival Mo!a' as ,ell as $is &arents be(ore t$e
-2C at =ros&eri!a! #g%san !el )%r. 2$e m%nici&alit' (ile! a Motion
to 2a+e or 3nter @&on t$e =ossession o( )%b9ect Matter o( 2$is Case
stating t$at it $a! alrea!' !e&osite! ,it$ t$e m%nici&al treas%rer
t$e necessar' amo%nt in accor!ance ,it$ )ection / -%le G7 o( t$e
-evise! -%les o( Co%rt an! t$at it ,o%l! be in t$e governmentHs
best interest (or &%blic res&on!ent to be allo,e! to ta+e &ossession
o( t$e &ro&ert'.
-2C: grante! res&on!ent m%nici&alit'Hs motion to ta+e &ossession
o( t$e lan! $el! t$at t$e )angg%niang =anlala,iganHs (ail%re to
!eclare t$e resol%tion invali! leaves it e((ective. *t a!!e! t$at t$e
!%t' o( t$e )angg%niang =anlala,igan is merel' to revie, t$e
or!inances an! resol%tions &asse! b' t$e )angg%niang Ba'an
%n!er )ection /58 ;1< o( B.=. Blg. 117 ol! LGC an! t$at t$e
e4ercise o( eminent !omain is not one o( t$e t,o acts en%merate!
in )ection 18 t$ereo( re.%iring t$e a&&roval o( t$e )angg%niang
=anlala,igan. M-: !enie!.
C#: t$e &%blic &%r&ose (or t$e e4&ro&riation is clear (rom - 01D88
an! t$at since t$e )angg%niang =anlala,igan o( #g%san !el )%r !i!
not !eclare - 01D88 invali! e4&ro&riation o( &etitionersH &ro&ert'
co%l! &rocee!. M-: !enie!.
Mean,$ile t$e M%nici&alit' o( B%na,an $a! erecte! t$ree
b%il!ings on t$e s%b9ect &ro&ert': t$e #ssociation o( Baranga'
Co%ncils ;#BC< Hall t$e M%nici&al Motor&ool bot$ ,oo!en
str%ct%res an! t$e B%na,an M%nici&al G'mnasi%m ,$ic$ is ma!e
o( concrete.
=et: see+s t$e reversal o( t$e !ecision an! resol%tion o( t$e C# an!
a !eclaration t$at - 01D88 o( t$e M%nici&alit' o( B%na,an is n%ll
an! voi!.
Co%rt iss%e! 2-O en9oining an! restraining &%blic res&on!ent 7%!ge
(rom en(orcing $er or!er an! res&on!ent m%nici&alit' (rom %sing
an! occ%&'ing all t$e b%il!ings constr%cte! an! (rom (%rt$er
constr%cting an' b%il!ing on t$e lan! s%b9ect o( t$is &etition. #cting
on &etitionersH Omnib%s Motion (or 3n(orcement o( -estraining
Or!er an! (or Contem&t t$e Co%rt iss%e! a -esol%tion citing
inc%mbent m%nici&al ma'or #n%ncio C. B%stillo (or contem&t
or!ering $im to &a' t$e (ine an! to !emolis$ t$e "bloc+tien!as"
,$ic$ ,ere b%ilt in violation o( t$e restraining or!er. B%stillo &ai!
t$e (ine an! mani(este! t$at $e lost in t$e election. 2$e inc%mbent
Ma'or Leonar!o Barrios (ile! a Mani(estation Motion to -esolve
"@rgent Motion (or *mme!iate Dissol%tion o( t$e 2em&orar'
-estraining Or!er" an! Memoran!%m on 7%ne 11 188G (or t$e
M%nici&alit' o( B%na,an.
C5
=et: conten! t$at t$e C# erre! in %&$ol!ing t$e legalit' o( t$e
con!emnation &rocee!ings initiate! b' t$e m%nici&alit'. #ccor!ing
to &etitioners t$e e4&ro&riation ,as &oliticall' motivate! an! - 01D
88 ,as correctl' !isa&&rove! b' t$e )angg%niang =anlala,igan
t$ere being ot$er m%nici&al &ro&erties available (or t$e &%r&ose.
=etitioners also &ra' t$at t$e (ormer Ma'or B%stillo be or!ere! to
&a' !amages (or insisting on t$e en(orcement o( a voi! m%nici&al
resol%tion.
C#: !eclare! t$at t$e )angg%niang =anlala,iganHs reason (or
!isa&&roving t$e resol%tion "co%l! be baseless beca%se it (aile! to
&oint o%t ,$ic$ an! ,$ere are t$ose available lots.H" -es&on!ent
co%rt also concl%!e! t$at since t$e )angg%niang =anlala,igan !i!
not !eclare t$e m%nici&al boar!Hs resol%tion as invali!
e4&ro&riation o( &etitionersH &ro&ert' co%l! &rocee!.
*ss%e: 6ON a m%nici&alit' ma' e4&ro&riate &rivate &ro&ert' b'
virt%e o( a m%nici&al resol%tion ,$ic$ ,as !isa&&rove! b' t$e
)angg%niang =anlala,igan. NO.
3minent !omain t$e &o,er ,$ic$ t$e M%nici&alit' o(
B%na,an e4ercise! in t$e instant case is a (%n!amental
)tate &o,er t$at is inse&arable (rom sovereignt'. *t is
governmentHs rig$t to a&&ro&riate in t$e nat%re o( a
com&%lsor' sale to t$e )tate &rivate &ro&ert' (or &%blic %se
or &%r&ose. *n$erentl' &ossesse! b' t$e national legislat%re
t$e &o,er o( eminent !omain ma' be vali!l' !elegate! to
local governments ot$er &%blic entities an! &%blic %tilities.
For t$e ta+ing o( &rivate &ro&ert' b' t$e government to be
vali! t$e ta+ing m%st be (or &%blic %se an! t$ere m%st be
9%st com&ensation.
2$e M%nici&alit' o( B%na,anHs &o,er to e4ercise t$e rig$t o(
eminent !omain is not !is&%te! as it is e4&ressl' &rovi!e!
(or in Batas =ambansa Blg. 117 t$e LGC 18 in (orce
at t$e time e4&ro&riation &rocee!ings ,ere initiate!. )ection
8 o( sai! la, states: # LG@ ma' t$ro%g$ its $ea! an! acting
&%rs%ant to a resol%tion o( its sangg%nian e4ercise t$e rig$t
o( eminent !omain an! instit%te con!emnation &rocee!ings
(or &%blic %se or &%r&ose.
6$at &etitioners .%estion is t$e lac+ o( a%t$orit' o( t$e
m%nici&alit' to e4ercise t$is rig$t since t$e )angg%niang
=anlala,igan
!isa&&rove! - 01D88.
)ection 1C1 o( B.=. Blg. 117: )angg%niang =anlala,igan
-evie,. ;1< 6it$in t$irt' !a's a(ter receiving co&ies o(
a&&rove! or!inances
resol%tions an! e4ec%tive or!ers &rom%lgate! b' t$e
m%nici&al ma'or t$e sangg%niang &anlala,igan s$all
e4amine t$e !oc%ments or transmit t$em to t$e &rovincial
attorne' or i( t$ere be none to t$e &rovincial (iscal ,$o
s$all e4amine t$em &rom&tl' an! in(orm t$e sangg%niang
&anlala,igan in ,riting o( an' !e(ect or im&ro&riet' ,$ic$
$e ma' !iscover t$erein an! ma+e s%c$ comments or
recommen!ations as s$all a&&ear to $im &ro&er. ;/< *( t$e
sangg%niang &anlala,igan s$all (in! t$at an' m%nici&al
or!inance resol%tion or e4ec%tive or!er is be'on! t$e
&o,er con(erre! %&on t$e sangg%niang ba'an or t$e ma'or
it s$all !eclare s%c$ or!inance resol%tion or e4ec%tive or!er
invali! in ,$ole or in &art entering its actions %&on t$e
min%tes an! a!vising t$e &ro&er m%nici&al a%t$orities
t$ereo(. 2$e e((ect o( s%c$ an action s$all be to ann%l t$e
or!inance resol%tion or e4ec%tive or!er in .%estion in ,$ole
or in &art. 2$e action o( t$e sangg%niang &anlala,igan s$all
be (inal.
2$e )angg%niang =anlala,iganHs !isa&&roval o( M%nici&al
- 01D88 is an in(irm action ,$ic$ !oes not ren!er sai!
resol%tion
n%ll an! voi!. 2$e la, as e4&resse! in )ection 1C1 o( B.=.
Blg. 117 grants t$e )angg%niang =anlala,igan t$e &o,er to
!eclare a m%nici&al resol%tion invali! on t$e sole gro%n!
t$at it is be'on! t$e &o,er o( t$e )angg%niang Ba'an or t$e
Ma'or to iss%e. #lt$o%g$ &ertaining to a similar &rovision o(
la, b%t !i((erent (act%al milie% t$en obtaining t$e Co%rtHs
&rono%ncements in KelaBco v. Blas ,$ere ,e cite!
signi(icant earl' 9%ris&r%!ence are a&&licable to t$e case at
bar. 2$e onl' gro%n! %&on ,$ic$ a &rovincial boar! ma'
!eclare an' m%nici&al resol%tion or!inance or or!er invali!
is ,$en s%c$ resol%tion or!inance or or!er is "be'on! t$e
&o,ers con(erre! %&on t$e co%ncil or &resi!ent ma+ing t$e
same." #bsol%tel' no ot$er gro%n! is recogniBe! b' t$e la,.
# strictl' legal .%estion is be(ore t$e &rovincial boar! in its
consi!eration o( a m%nici&al resol%tion or!inance or or!er.
2$e &rovincial ;boar!Hs< !isa&&roval o( an' resol%tion
or!inance or or!er m%st be &remise! s&eci(icall' %&on t$e
(act t$at s%c$ resol%tion or!inance or or!er is o%tsi!e t$e
C1
sco&e o( t$e legal &o,ers con(erre! b' la,. *( a &rovincial
boar! &asses t$ese limits it %s%r&s t$e legislative (%nction
o( t$e m%nici&al co%ncil or &resi!ent. )%c$ $as been t$e
consistent co%rse o( e4ec%tive a%t$orit'.
)angg%niang =anlala,igan ,as ,it$o%t t$e a%t$orit' to
!isa&&rove M%nici&al - 01D88 (or t$e M%nici&alit' o(
B%na,an clearl' $as t$e &o,er to e4ercise t$e rig$t o(
eminent !omain an! its )angg%niang Ba'an t$e ca&acit' to
&rom%lgate sai! resol%tion &%rs%ant to t$e earlierD.%ote!
)ection 8 o( B.=. Blg. 117. =er(orce it (ollo,s t$at -esol%tion
No. 01D88 is vali! an! bin!ing an! co%l! be %se! as la,(%l
a%t$orit' to &etition (or t$e con!emnation o( &etitionersH
&ro&ert'.
#cc%sation o( &olitical o&&ression: it is allege! t$at =ercival
Mo!a' inc%rre! t$e ire o( t$en Ma'or B%stillo ,$en $e
re(%se! to s%&&ort t$e latterHs can!i!ac' (or ma'or in
&revio%s elections. =etitioners claim t$at t$en inc%mbent
Ma'or C. B%stillo %se! t$e e4&ro&riation to retaliate b'
e4&ro&riating t$eir lan! even i( t$ere ,ere ot$er &ro&erties
belonging to t$e m%nici&alit' an! available (or t$e &%r&ose.
)&eci(icall' t$e' allege t$at t$e m%nici&alit' o,ns a vacant
sevenD$ectare &ro&ert' a!9acent to &etitionersH lan!
evi!ence! b' a s+etc$ &lan.
2$e limitations on t$e &o,er o( eminent !omain are t$at t$e
%se m%st be &%blic com&ensation m%st be ma!e an! !%e
&rocess o( la, m%st be observe!. 2$e )%&reme Co%rt
ta+ing cogniBance o( s%c$ iss%es as t$e a!e.%ac' o(
com&ensation necessit' o( t$e ta+ing an! t$e &%blic %se
c$aracter or t$e &%r&ose o( t$e ta+ing /1 $as r%le! t$at t$e
necessit' o( e4ercising eminent !omain m%st be gen%ine
an! o( a &%blic c$aracter. Government ma' not ca&ricio%sl'
c$oose ,$at &rivate &ro&ert' s$o%l! be ta+en. #(ter a
care(%l st%!' o( t$e recor!s o( t$e case $o,ever ,e (in! no
evi!entiar' s%&&ort (or &etitionersH allegations. 2$e
%ncerti(ie! &$otoco&' o( t$e s+etc$ &lan !oes not
concl%sivel' &rove t$at t$e m%nici&alit' !oes o,n vacant
lan! a!9acent to &etitionersH &ro&ert' s%ite! to t$e &%r&ose
o( t$e e4&ro&riation. *n t$e .%estione! !ecision res&on!ent
a&&ellate co%rt similarl' $el! t$at t$e &lea!ings an!
!oc%ments on recor! $ave not &ointe! o%t an' o(
res&on!ent m%nici&alit'Hs "ot$er available &ro&erties
available (or
t$e same &%r&ose." 2$e acc%sations o( &olitical re&risal are
li+e,ise
%ns%&&orte! b' com&etent evi!ence. Conse.%entl' t$e
Co%rt $ol!s t$at &etitionersH !eman! t$at t$e (ormer
m%nici&al ma'or be &ersonall' liable (or !amages is ,it$o%t
basis.
Camarines (ur v. CA
Facts: 2$e )angg%niang =anlala,igan o( t$e =rovince o( Cams%r
&asse! -esol%tion No. 1/8 )eries o( 1888 a%t$oriBing t$e
=rovincial Governor to &%rc$ase or e4&ro&riate &ro&ert' contig%o%s
to t$e &rovincial ca&itol site in or!er to establis$ a &ilot (arm (or
nonD(oo! an! nonDtra!itional agric%lt%ral cro&s an! a $o%sing
&ro9ect (or &rovincial government em&lo'ees. Cams%r (ile!
e4&ro&riation cases against t$e )an 7oa.%ins as ,ell as a motion (or
t$e iss%ance o( ,rit o( &ossession. 2$e )7s (aile! to a&&ear at t$e
$earing o( t$e motion. 2$e' move! to !ismiss t$e com&laints on
t$e gro%n! o( ina!e.%ac' o( t$e &rice o((ere! (or t$eir &ro&ert'.
-2C: !enie! t$e motion to !ismiss an! a%t$oriBe! t$e Cams%r to
ta+e &ossession o( t$e &ro&ert' %&on t$e !e&osit ,it$ t$e Cler+ o(
Co%rt o( t$e amo%nt o( =C710.55 t$e amo%nt &rovisionall' (i4e!
b' t$e trial co%rt to ans,er (or !amages t$at &rivate res&on!ents
ma' s%((er in t$e event t$at t$e e4&ro&riation cases !o not
&ros&er. *ss%e! a ,rit o( &ossession. 2$e )an 7oa.%ins (ile! a
motion (or relie( (rom t$e or!er an! a motion to a!mit an amen!e!
motion to !ismiss. Bot$ motions ,ere !enie!.
C#: )7s as+e!: ;a< t$at t$e -es. be !eclare! n%ll an! voi!A ;b< t$at
t$e com&laints (or e4&ro&riation be !ismisse!A an! ;c< t$at t$e
or!er !en'ing t$e motion to !ismiss an! allo,ing Cams%r to ta+e
&ossession o( t$e &ro&ert' s%b9ect o( t$e e4&ro&riation an! t$e
or!er !en'ing t$e motion to a!mit t$e amen!e! motion to !ismiss
be set asi!e. 2$e' also as+e! t$at an or!er be iss%e! to restrain
t$e trial co%rt (rom en(orcing t$e ,rit o( &ossession an! t$erea(ter
to iss%e a ,rit o( in9%nction. Cams%r: claime! t$at it $as t$e
a%t$orit' to initiate t$e e4&ro&riation &rocee!ings %n!er )ections 0
an! 7 o( LGC ;B.=. Blg. 117< an! t$at t$e e4&ro&riations are (or a
&%blic &%r&ose. )G: %n!er )ection 8 o( t$e LGC ;B.=. Blg. 117<
t$ere ,as no nee! (or t$e a&&roval b' t$e O((ice o( t$e =resi!ent o(
t$e e4ercise b' t$e )angg%niang =anlala,igan o( t$e rig$t o(
eminent !omain. 34&resse! t$e vie, t$at t$e =rovince o( Cams%r
m%st (irst sec%re t$e a&&roval o( t$e De&artment o( #grarian
C/
-e(orm o( t$e &lan to e4&ro&riate t$e lan!s o( &etitioners (or %se as
a $o%sing &ro9ect.
C#: set asi!e t$e or!er o( t$e trial co%rt allo,ing t$e =rovince o(
Cams%r to ta+e &ossession o( &rivate res&on!entsH lan!s an! t$e
or!er !en'ing t$e a!mission o( t$e amen!e! motion to !ismiss. *t
also or!ere! t$e trial co%rt to s%s&en! t$e e4&ro&riation
&rocee!ings %ntil a(ter Cams%r s$all $ave s%bmitte! t$e re.%isite
a&&roval o( t$e De&artment o( #grarian -e(orm to convert t$e
classi(ication o( t$e &ro&ert' o( t$e &rivate res&on!ents (rom
agric%lt%ral to nonDagric%lt%ral lan!.
Cams%r: its e4ercise o( t$e &o,er o( eminent !omain cannot be
restricte! b' t$e &rovisions o( t$e Com&re$ensive #grarian -e(orm
La, ;-.#. No. GGC7< &artic%larl' )ection GC t$ereo( ,$ic$ re.%ires
t$e a&&roval o( t$e De&artment o( #grarian -e(orm be(ore a &arcel
o( lan! can be reclassi(ie! (rom an agric%lt%ral to a nonDagric%lt%ral
lan!.
C# (ollo,ing t$e recommen!ation o( t$e )olicitor General $el!
t$at t$e =rovince o( Cams%r m%st com&l' ,it$ t$e &rovision o(
)ection GC o( t$e Com&re$ensive #grarian -e(orm La, an! m%st
(irst sec%re t$e a&&roval o( t$e De&artment o( #grarian -e(orm o(
t$e &lan to e4&ro&riate t$e lan!s o( t$e )7s
*ss%e: 6ON t$e e4&ro&riation o( agric%lt%ral lan!s b' LG@s is
s%b9ect to t$e &rior a&&roval o( t$e )ecretar' o( t$e #grarian
-e(orm as t$e im&lementator o( t$e agrarian re(orm &rogram.
6$en t$e C# or!ere! t$e s%s&ension o( t$e &rocee!ings
%ntil t$e =rovince o( Cams%r s$all $ave obtaine! t$e
a%t$orit' o( t$e De&artment o( #grarian -e(orm to c$ange
t$e classi(ication o( t$e lan!s so%g$t to be e4&ro&riate!
(rom agric%lt%ral to nonDagric%lt%ral %se it ass%me! t$at t$e
resol%tion is vali! an! t$at t$e e4&ro&riation is (or a &%blic
&%r&ose or &%blic %se.
Mo!ernl' t$ere $as been a s$i(t (rom t$e literal to a broa!er
inter&retation o( "&%blic &%r&ose" or "&%blic %se" (or ,$ic$
t$e &o,er o( eminent !omain ma' be e4ercise!. 2$e ol!
conce&t ,as t$at t$e con!emne! &ro&ert' m%st act%all' be
%se! b' t$e general &%blic ;e.g. roa!s bri!ges &%blic
&laBas etc.< be(ore t$e ta+ing t$ereo( co%l! satis(' t$e
constit%tional re.%irement o( "&%blic %se". @n!er t$e ne,
conce&t "&%blic %se" means &%blic a!vantage convenience
or bene(it ,$ic$ ten!s to contrib%te to t$e general ,el(are
an! t$e &ros&erit' o( t$e ,$ole comm%nit' li+e a resort
com&le4 (or to%rists or $o%sing &ro9ect ;Heirs o( 7%anc$o
#r!ano v. -e'es 1/C )C-# //5 U1881VA )%m%long v.
G%errero 1C0 )C.-# 0G1 U1887V<.
2$e e4&ro&riation o( t$e &ro&ert' a%t$oriBe! b' t$e
.%estione! resol%tion is (or a &%blic &%r&ose. 2$e
establis$ment o( a &ilot !evelo&ment center ,o%l! in%re to
t$e !irect bene(it an! a!vantage o( t$e &eo&le o( t$e
=rovince o( Cams%r. Once o&erational t$e center ,o%l!
ma+e available to t$e comm%nit' inval%able in(ormation
an! tec$nolog' on agric%lt%re (is$er' an! t$e cottage
in!%str'. @ltimatel' t$e liveli$oo! o( t$e (armers (is$ermen
an! cra(tsmen ,o%l! be en$ance!.. 2$e $o%sing &ro9ect also
satis(ies t$e &%blic &%r&ose re.%irement o( t$e Constit%tion.
#s $el! in )%m%long v. G%errero 1C0 )C-# 0G1 "Ho%sing is
a basic $%man nee!. )$ortage in $o%sing is a matter o(
state concern since it !irectl' an! signi(icantl' a((ects &%blic
$ealt$ sa(et' t$e environment an! in s%m t$e general
,el(are."
2$e )olicitor General !enigrate! t$e &o,er to e4&ro&riate
b' t$e =rovince o( Cams%r b' stressing t$e (act t$at LG@s
e4ercise s%c$ &o,er onl' b' !elegation. ;Comment &&. 10D
1CA -ollo &&. 1/8D1/8<
Heirs o( 7%anc$o #r!ana v. -e'es: Co%rt sai! t$at t$ere ,as
"no nee! %n!er t$e (acts o( t$is &etition to r%le on ,$et$er
t$e &%blic &%r&ose is s%&erior or in(erior to anot$er &%r&ose
or engage in a balancing o( com&eting &%blic interest" it
%&$el! t$e e4&ro&riation a(ter noting t$at &etitioners $a!
(aile! to overcome t$e s$o,ing t$at t$e ta+ing o( 8875
s.%are meters (orme! &art o( t$e resort com&le4. # (air an!
reasonable rea!ing o( t$e !ecision is t$at t$is Co%rt vie,e!
t$e &o,er o( e4&ro&riation as s%&erior to t$e &o,er to
!istrib%te lan!s %n!er t$e lan! re(orm &rogram.
*t is tr%e t$at LG@s $ave no in$erent &o,er o( eminent
!omain an! can e4ercise it onl' ,$en e4&ressl' a%t$oriBe!
b' t$e legislat%re. *t is also tr%e t$at in !elegating t$e &o,er
to e4&ro&riate t$e legislat%re ma' retain certain control or
im&ose certain restraints on t$e e4ercise t$ereo( b' t$e
local governments. 6$ile s%c$ !elegate! &o,er ma' be a
limite! a%t$orit' it is com&lete ,it$in its limits. Moreover
t$e limitations on t$e e4ercise o( t$e !elegate! &o,er m%st
be clearl' e4&resse! eit$er in t$e la, con(erring t$e &o,er
or in ot$er legislations.
C1
-esol%tion No. 1/8 )eries o( 1888 ,as &rom%lgate!
&%rs%ant to )ection 8 o( B.=. Blg. 117 t$e LGC ,$ic$
&rovi!es: # LG@ ma' t$ro%g$ its $ea! an! acting &%rs%ant
to a resol%tion o( its sangg%nian e4ercise t$e rig$t o(
eminent !omain an! instit%te con!emnation &rocee!ings (or
&%blic %se or &%r&ose. )ection 8 o( B.=. Blg. 117 !oes not
intimate in t$e least t$at local government %nits m%st (irst
sec%re t$e a&&roval o( t$e De&artment o( Lan! -e(orm (or
t$e conversion o( lan!s (rom agric%lt%ral to nonDagric%lt%ral
%se be(ore t$e' can instit%te t$e necessar' e4&ro&riation
&rocee!ings. Li+e,ise t$ere is no &rovision in t$e
Com&re$ensive #grarian -e(orm La, ,$ic$ e4&ressl'
s%b9ects t$e e4&ro&riation o( agric%lt%ral lan!s b' LG@s to
t$e control o( t$e De&artment o( #grarian -e(orm. 2$e
closest &rovision o( la, t$at t$e C# co%l! cite to 9%sti(' t$e
intervention o( t$e De&artment o( #grarian -e(orm in
e4&ro&riation matters is )ection GC o( t$e Com&re$ensive
#grarian -e(orm La, ,$ic$ rea!s: )ec. GC. Conversion o(
Lan!s. #(ter t$e la&se o( (ive ;C< 'ears (rom its a,ar! ,$en
t$e lan! ceases to be economicall' (easible an! so%n! (or
agric%lt%ral &%r&oses or t$e localit' $as become %rbaniBe!
an! t$e lan! ,ill $ave a greater economic val%e (or
resi!ential commercial or in!%strial &%r&oses t$e D#-
%&on a&&lication o( t$e bene(iciar' or t$e lan!o,ner ,it$
!%e notice to t$e a((ecte! &arties an! s%b9ect to e4isting
la,s ma' a%t$oriBe t$e reclassi(ication or conversion o( t$e
lan! an! its !is&osition: =rovi!e! 2$at t$e bene(iciar' s$all
$ave (%ll' &ai! $is obligation.
2$e o&ening a!verbial &$rase o( t$e &rovision sen!s signals
t$at it a&&lies to lan!s &revio%sl' &lace! %n!er t$e agrarian
re(orm &rogram as it s&ea+s o( "t$e la&se o( (ive ;C< 'ears
(rom its a,ar!." 2$e r%les on conversion o( agric%lt%ral
lan!s (o%n! in )ection 0 ;+< an! C ;1< o( 34ec%tive Or!er No.
1/8D# )eries o( 1887 cannot be t$e so%rce o( t$e a%t$orit'
o( t$e De&artment o( #grarian -e(orm to !etermine t$e
s%itabilit' o( a &arcel o( agric%lt%ral lan! (or t$e &%r&ose to
,$ic$ it ,o%l! be !evote! b' t$e e4&ro&riating a%t$orit'.
6$ile t$ose r%les vest on t$e De&artment o( #grarian
-e(orm t$e e4cl%sive a%t$orit' to a&&rove or !isa&&rove
conversions o( agric%lt%ral lan!s (or resi!ential commercial
or in!%strial %ses s%c$ a%t$orit' is limite! to t$e
a&&lications (or reclassi(ication s%bmitte! b' t$e lan!
o,ners or tenant bene(iciaries.
)tat%tes con(erring t$e &o,er o( eminent !omain to &olitical
s%b!ivisions cannot be broa!ene! or constricte! b'
im&lication.
2o s%stain t$e C# ,o%l! mean t$at t$e LG@s can no longer
e4&ro&riate agric%lt%ral lan!s nee!e! (or t$e constr%ction o(
roa!s bri!ges sc$ools $os&itals etc ,it$o%t (irst a&&l'ing
(or conversion o( t$e %se o( t$e lan!s ,it$ t$e De&artment
o( #grarian -e(orm beca%se all o( t$ese &ro9ects ,o%l!
nat%rall' involve a c$ange in t$e lan! %se. *n e((ect it ,o%l!
t$en be t$e De&artment o( #grarian -e(orm to scr%tiniBe
,$et$er t$e e4&ro&riation is (or a &%blic &%r&ose or &%blic
%se.
Or!inaril' it is t$e legislative branc$ o( t$e LG@ t$at s$all
!etermine ,$et$er t$e %se o( t$e &ro&ert' so%g$t to be
e4&ro&riate! s$all be &%blic t$e same being an e4&ression
o( legislative &olic'. 2$e co%rts !e(er to s%c$ legislative
!etermination an! ,ill intervene onl' ,$en a &artic%lar
%n!erta+ing $as no real or s%bstantial relation to t$e &%blic
%se.
2$ere is also an ancient r%le t$at restrictive stat%tes no
matter $o, broa! t$eir terms are !o not embrace t$e
sovereign %nless t$e sovereign is s&eciall' mentione! as
s%b9ect t$ereto. 2$e -e&%blic o( t$e =$ili&&ines as
sovereign or its &olitical s%b!ivisions as $ol!ers o(
!elegate! sovereign &o,ers cannot be bo%n! b' &rovisions
o( la, co%c$e! in general term.
Me#caua#an v. )AC
Facts: 2$e =$ili&&ine =i&es an! Merc$an!ising Cor&oration (ile!
,it$ t$e O((ice o( t$e M%nici&al Ma'or o( Me'ca%a'an B%lacan an
a&&lication (or a &ermit to (ence a &arcel o( lan!. 2$e (encing o(
sai! &ro&ert' ,as allege!l' to enable t$e storage o( t$e
res&on!entHs $eav' e.%i&ment an! vario%s (inis$e! &ro!%cts s%c$
as large !iameter steel &i&es &ontoon &i&es (or &orts ,$arves
an! $arbors bri!ge com&onents &reDstresse! gir!ers an! &iles
large !iameter concrete &i&es an! &arts (or lo, cost $o%sing. *n
t$e same 'ear t$e M%nici&al Co%ncil o( Me'ca%a'an $ea!e! b'
t$en Ma'or Celso -. Legas&i &asse! -esol%tion No. /C8 )eries o(
187C mani(esting t$e intention to e4&ro&riate t$e res&on!entHs
C0
&arcel o( lan!. 2$e )&ecial Committee recommen!e! t$at t$e
=rovincial Boar! o( B%lacan !isa&&rove or ann%l t$e resol%tion in
.%estion beca%se t$ere ,as no gen%ine necessit' (or t$e
M%nici&alit' o( Me'ca%a'an to e4&ro&riate t$e res&on!entHs
&ro&ert' (or %se as a &%blic roa!. On t$e basis o( t$is re&ort t$e
=rovincial Boar! o( B%lacan &asse! -esol%tion No. /18 )eries o(
187G !isa&&roving an! ann%lling -esol%tion No. /C8 )eries o(
187C o( t$e M%nici&al Co%ncil o( Me'ca%a'an. ==MC t$en
reiterate! to t$e O((ice o( t$e Ma'or its &etition (or t$e a&&roval o(
t$e &ermit to (ence t$e a(oresai! &arcels o( lan!. 2$e M%nici&al
Co%ncil o( Me'ca%a'an no, $ea!e! b' Ma'or #!riano D. DaeB
&asse! -esol%tion No. /1 )eries o( 1881 (or t$e &%r&ose o(
e4&ro&riating ane, t$e res&on!entHs lan!. 2$e =rovincial Boar! o(
B%lacan a&&rove! t$e a(oresai! resol%tion on 7an%ar' /C 1880.
2$erea(ter t$e &etitioner on Febr%ar' 10 1880 (ile! ,it$ t$e
-egional 2rial Co%rt o( Malolos B%lacan Branc$ K* a s&ecial civil
action (or e4&ro&riation. @&on !e&osit o( t$e amo%nt o( =/05/C.55
,$ic$ is t$e mar+et val%e o( t$e lan! ,it$ t$e =$ili&&ine National
Ban+ t$e trial co%rt on Marc$ 1 1880 iss%e! a ,rit o( &ossession in
(avor o( t$e &etitioner. On #%g%st /7 1880 t$e trial co%rt iss%e!
an or!er !eclaring t$e ta+ing o( t$e &ro&ert' as la,(%l an!
a&&ointing t$e =rovincial #ssessor o( B%lacan as co%rt
commissioner ,$o s$all $ol! t$e $earing to ascertain t$e 9%st
com&ensation (or t$e &ro&ert'. 2$e res&on!ent ,ent to t$e
*nterme!iate #&&ellate Co%rt on &etition (or revie,. On 7an%ar' 15
188C t$e a&&ellate co%rt a((irme! t$e trial co%rtHs !ecision.
Ho,ever %&on motion (or reconsi!eration b' t$e res&on!ent t$e
!ecision ,as reDe4amine! an! reverse!. 2$e a&&ellate co%rt $el!
t$at t$ere is no gen%ine necessit' to e4&ro&riate t$e lan! (or %se
as a &%blic roa! as t$ere ,ere several ot$er roa!s (or t$e same
&%r&ose an! anot$er more a&&ro&riate lot (or t$e &ro&ose! &%blic
roa!. 2$e co%rt ta+ing into consi!eration t$e location an! siBe o(
t$e lan! also o&ine! t$at t$e lan! is more *!eal (or %se as storage
area (or res&on!entHs $eav' e.%i&ment an! (inis$e! &ro!%cts. M-:
!enie!.
*ss%e: 6ON t$ere is a gen%ine necessit' to e4&ro&riate t$is stri& o(
lan! (or %se as a &%blic roa!. NO.
2$e &etitionerHs &%r&ose in e4&ro&riating t$e res&on!entHs
&ro&ert' is to convert t$e same into a &%blic roa! ,$ic$
,o%l! &rovi!e a connecting lin+ bet,een Mal$acan -oa!
an! B%lac -oa! in KalenB%ela B%lacan an! t$ereb' ease t$e
tra((ic in t$e area o( ve$icles coming (rom Mac#rt$%r
Hig$,a'.
2$e recor!s $o,ever reveals t$at t$ere are ot$er
connecting lin+s bet,een t$e a(orementione! roa!s. 2$e
&etitioner itsel( a!mits t$at t$ere are (o%r s%c$ cross roa!s
in e4istence. 2$e res&on!ent co%rt state! t$at ,it$ t$e
&ro&ose! roa! t$ere ,o%l! be seven.
2$e )+etc$ =lan clearl' an! concl%sivel' s$o,s t$at
&etitioner !oes not nee! t$is stri& o( lan! as a &rivate roa!.
2$e )+etc$ =lan clearl' s$o,s t$at &etitionerHs (actor' site is
a!9acent to B%lac -oa! ,$ic$ $as a ,i!t$ o( abo%t seven
meters more or less. =etitioner can %se B%lac -oa! in
reac$ing Mc#rt$%r Hig$,a' on t$e ,est or in reac$ing t$e
Manila Nort$ 34&ress,a' on t$e east (or t$e &%r&ose o(
trans&orting its &ro!%cts. =etitioner !oes not nee! to go to
Mal$acan -oa! via t$is soDcalle! &rivate roa! be(ore going
to Mc#rt$%r Hig$,a' or to t$e Manila Nort$ 34&ress,a'.
6$' s$o%l! &etitioner go (irst to Mal$acan -oa! via t$is so
calle! "&rivate roa!" be(ore going to Mc#rt$%r Hig$,a' or to
t$e Manila Nort$ 34&ress,a' ,$en ta+ing t$e B%lac -oa! in
going to Mc#rt$%r Hig$,a' or to t$e Manila Nort$
34&ress,a' is more !irect nearer an! more a!vantageo%s.
Hence it is be'on! !o%bt t$at &etitioner ac.%ire! t$is stri&
o( lan! (or t$e storage o( its $eav' e.%i&ments an! vario%s
(inis$e! &ro!%cts an! (or gro,t$ an! e4&ansion an! never
to %se it as a &rivate roa!. 2$is is t$e ver' reason ,$'
&etitioner (ile! an a&&lication ,it$ t$e O((ice o( t$e
M%nici&al Ma'or o( Me'ca%a'an B%lacan to (ence ,it$
$ollo, bloc+s t$is stri& o( lan!.
From t$e (oregoing (acts it a&&ears obvio%s to t$is )&ecial
Committee t$at t$ere is no gen%ine necessit' (or t$e
M%nici&alit' o(H Me'ca%a'an to e4&ro&riate t$e a(oresai!
&ro&ert' o( t$e =$ili&&ine =i&es an! Merc$an!ising
Cor&oration (or %se as a &%blic roa!. Consi!ering t$at in t$e
vicinit' t$ere are ot$er available roa! an! vacant lot o((ere!
(or sale sit%ate! similarl' as t$e lot in .%estion an! l'ing
*!le %nli+e t$e lot so%g$t to be e4&ro&riate! ,$ic$ ,as
(o%n! b' t$e Committee to be ba!l' nee!e! b' t$e
com&an' as a site (or its $eav' e.%i&ment a(ter it is (ence!
toget$er ,it$ t$e a!9oining vacant lot t$e 9%sti(ication to
con!emn t$e same !oes not a&&ear to be ver' im&erative
an! necessar' an! ,o%l! onl' ca%se %n9%sti(ie! !amage to
CC
t$e (irm. 2$e !esire o( t$e M%nici&alit' o( Me'ca%a'an to
b%il! a &%blic roa! to !econgest t$e vol%me o( tra((ic can be
(%ll' an! better attaine! b' ac.%iring t$e ot$er available
roa!s in t$e vicinit' ma'be at lesser costs ,it$o%t ca%sing
$arm to an establis$ment !oing legitimate b%siness t$erein.
Or t$e m%nici&alit' ma' see+ to e4&ro&riate a &ortion o( t$e
vacant lot also in t$e vicinit' o((ere! (or sale (or a ,i!er
&%blic roa! to attain !econgest ;sic< o( tra((ic beca%se as
observe! b' t$e Committee t$e lot o( t$e Cor&oration
so%g$t to be ta+en ,ill onl' accommo!ate a oneD,a' tra((ic
lane an! t$ere(ore ,ill not s%((ice to im&rove an!
!econgest t$e (lo, o( tra((ic an! &e!estrians in t$e
Mal$acan area. ...
*t m%st be note! t$at t$is stri& o( lan! covere! b' 2rans(er
Certi(icates o( 2itles Nos. /1C1GC an! 17878 ,ere ac.%ire!
b' &etitioner (rom Dr. Killacorta. 2$e lot (or sale an! l'ing
*!le ,it$ an area o( 1G571 s.%are meter ,$ic$ is a!9acent
an! on t$e ,estern si!e o( t$e a(oresai! stri& o( lan! an!
e4ten!s li+e,ise (rom B%lac -oa! to Mal$acan -oa! belongs
also to Dr. Killacorta. 2$is lot (or sale an! l'ing *!le is most
*!eal (or %se as a &%blic roa! beca%se it is more t$an t$ree
;1< times ,i!er t$at t$e sai! stri& o( lan!.
)ince t$ere is anot$er lot rea!' (or sale an! l'ing *!le
a!9acent an! on t$e ,estern si!e o( t$e stri& o( lan! an!
e4ten!ing also (rom Mal$acan -oa! to B%lac -oa! an! most
*!eal (or a &%blic roa! beca%se it is ver' m%c$ ,i!er t$an
t$e lot so%g$t to be e4&ro&riate! it seems t$at it is more
9%st (air an! reasonable i( t$is lot is t$e one to be
e4&ro&riate!.
2$e &etitioner ob9ects to t$e a&&ellate co%rtHs (in!ings
conten!ing t$at t$e' ,ere base! on (acts obtaining long
be(ore t$e &resent action to e4&ro&riate too+ &lace. 6e
note $o,ever t$at t$ere is no evi!ence on recor! ,$ic$
s$o,s a c$ange in t$e (act%al circ%mstances o( t$e case.
2$ere is no s$o,ing t$at some o( t$e si4 ot$er available
cross roa!s $ave been close! or t$at t$e &rivate roa!s in
t$e s%b!ivision ma' not be %se! (or m%nici&al &%r&oses.
6$at is more li+el' is t$at t$ese roa!s $ave alrea!' been
t%rne! over to t$e government. 2$e &etitioner alleges t$at
s%rel' t$e environmental &rogress !%ring t$e s&an o( seven
'ears bet,een t$e (irst an! secon! attem&ts to e4&ro&riate
$as bro%g$t abo%t a c$ange in t$e (acts o( t$e case. 2$is
allegation !oes not merit consi!eration absent a s$o,ing o(
concrete evi!ence attesting to it.
2$ere is no .%estion $ere as to t$e rig$t o( t$e )tate to ta+e
&rivate &ro&ert' (or &%blic %se %&on &a'ment o( 9%st
com&ensation. 6$at is .%estione! is t$e e4istence o( a
gen%ine necessit' t$ere(or.
Cit' o( Manila v. C$inese Comm%nit' o( Manila: t$is Co%rt
$el! t$at t$e (o%n!ation o( t$e rig$t to e4ercise t$e &o,er o(
eminent !omain is gen%ine necessit' an! t$at necessit'
m%st be o( a &%blic c$aracter. Con!emnation o( &rivate
&ro&ert' is 9%sti(ie! onl' i( it is (or t$e &%blic goo! an! t$ere
is a gen%ine necessit' o( a &%blic c$aracter. Conse.%entl'
t$e co%rts $ave t$e &o,er to in.%ire into t$e legalit' o( t$e
e4ercise o( t$e rig$t o( eminent !omain an! to !etermine
,$et$er t$ere is a gen%ine necessit' t$er(or.
De Mnec$t v. Ba%tista t$is co%rt (%rt$er r%le! t$at t$e
government ma' not ca&ricio%sl' c$oose ,$at &rivate
&ro&ert' s$o%l! be ta+en. Citing t$e case o( 7.M. 2%ason P
Co. *nc. v. Lan! 2en%re #!ministration ;s%&ra< t$e Co%rt
$el!: 6it$ !%e recognition t$en o( t$e &o,er o( Congress to
!esignate t$e &artic%lar &ro&ert' to be ta+en an! $o, m%c$
t$ereo( ma' be con!emne! in t$e e4ercise o( t$e &o,er o(
e4&ro&riation it is still a 9%!icial .%estion ,$et$er in t$e
e4ercise o( s%c$ com&etence t$e &art' a!versel' a((ecte!
is t$e victim o( &artialit' an! &re9%!ice. 2$at t$e e.%al
&rotection cla%se ,ill not allo,.
2$ere is absol%tel' no s$o,ing in t$e &etition ,$' t$e more
a&&ro&riate lot (or t$e &ro&ose! roa! ,$ic$ ,as o((ere! (or
sale $as not been t$e s%b9ect o( t$e &etitionerHs attem&t to
e4&ro&riate ass%ming t$ere is a real nee! (or anot$er
connecting roa!.
,apocor v. +ocson
Facts: 2$e N=C (ile! (or t$e ac.%isition o( a rig$tDo(D,a' easement
over &ortions o( t$e &arcels o( lan! !escribe! in t$e com&laints (or
its NegrosD=ana' *nterconnection =ro9ect &artic%larl' t$e Bacolo!D
2omonton 2ransmission Line. =rovisional val%es ,ere (i4e! on t$e
basis o( t$e mar+et val%e an! t$e !ail' o&&ort%nit' &ro(it &etitioner
ma' !erive. -es&on!ents so%g$t a reDeval%ation. 7%!ge increase!
val%e ,it$o%t $earing an! !irecting t$e !e(en!ants to mani(est
,it$in t,ent'D(o%r ;/0< $o%rs ,$et$er or not t$e' are acce&ting
CG
an! ,it$!ra,ing t$e amo%nts re&resenting t$e &rovisional val%es
!e&osite! b' t$e &lainti(( (or eac$ o( t$em as "(inal an! (%ll
satis(action o( t$e val%e o( t$eir res&ective &ro&ert' ;sic<A " 7%!ge
!eclare! t$e &rovisional val%es as t$e (inal val%es an! !irecting t$e
release o( t$e amo%nts !e&osite! in (%ll satis(action t$ereo( to t$e
!e(en!ants even i( not all o( t$em ma!e t$e mani(estationA an!
s%s&en!e! t$e iss%ance o( t$e ,rit o( &ossession %ntil a(ter t$e
s%s&en!ing t$e amo%nts s$all $ave been release! to an! receive!
b' !e(en!ants.
*ss%e: 6ON 7%!ge 7ocson committe! grave ab%se o( !iscretion
amo%nting to lac+ o( 9%ris!iction. :3).
M%nici&alit' o( BiRan vs. Hon. 7ose Mar Garcia et al: t$ere
are t,o ;/< stages in ever' action o( e4&ro&riation: 2$e (irst
is concerne! ,it$ t$e !etermination o( t$e a%t$orit' o( t$e
&lainti(( to e4ercise t$e &o,er o( eminent !omain an! t$e
&ro&riet' o( its e4ercise in t$e conte4t o( t$e (acts involve!
in t$e s%it. *t en!s ,it$ an or!er i( not o( !ismissal o( t$e
action "o( con!emnation !eclaring t$at t$e &lainti(( $as a
la,(%l rig$t to ta+e t$e &ro&ert' so%g$t to be con!emne!
(or t$e &%blic %se or &%r&ose !escribe! in t$e com&laint
%&on t$e &a'ment o( 9%st com&ensation to be !etermine! as
o( t$e !ate o( t$e (iling o( t$e com&laint." #n or!er o(
!ismissal i( t$is be or!aine! ,o%l! be a (inal one o(
co%rse since it (inall' !is&oses o( t$e action an! leaves
not$ing more to be !one b' t$e Co%rt on t$e merits. )o too
,o%l! an or!er o( con!emnation be a (inal one (or
t$erea(ter as t$e -%les e4&ressl' state in t$e &rocee!ings
be(ore t$e 2rial Co%rt "no ob9ection to t$e e4ercise o( t$e
rig$t o( con!emnation ;or t$e &ro&riet' t$ereo(< s$all be
(ile! or $ear!." 2$e secon! &$ase o( t$e eminent !omain
action is concerne! ,it$ t$e !etermination b' t$e Co%rt o(
t$e "9%st com&ensation (or t$e &ro&ert' so%g$t to be ta+en."
2$is is !one b' t$e Co%rt ,it$ t$e assistance o( not more
t$an t$ree ;1< commissioners. 2$e or!er (i4ing t$e 9%st
com&ensation on t$e basis o( t$e evi!ence be(ore an!
(in!ings o( t$e commissioners ,o%l! be (inal too. *t ,o%l!
(inall' !is&ose o( t$e secon! stage o( t$e s%it an! leave
not$ing more to be !one b' t$e Co%rt regar!ing t$e
iss%e. . . .
Ho,ever %&on t$e (iling o( t$e com&laint or at an' time
t$erea(ter t$e &etitioner $as t$e rig$t to ta+e or enter %&on
t$e &ossession o( t$e &ro&ert' involve! %&on com&liance
,it$ =.D. No. 0/ ,$ic$ re.%ires t$e &etitioner a(ter !%e
notice to t$e !e(en!ant to !e&osit ,it$ t$e =$ili&&ine
National Ban+ in its main o((ice or an' o( its branc$es or
agencies "an amo%nt e.%ivalent to t$e assesse! val%e o(
t$e &ro&ert' (or &%r&oses o( ta4ation." 2$is assesse! val%e
is t$at in!icate! in t$e ta4 !eclaration.
=.D. No. 0/ re&eale! t$e "&rovisions o( -%le G7 o( t$e -%les
o( Co%rt an! o( an' ot$er e4isting la, contrar' to or
inconsistent" ,it$ it. #ccor!ingl' it re&eale! )ection / o(
-%le G7 inso(ar as t$e !etermination o( t$e &rovisional
val%e t$e (orm o( &a'ment an! t$e agenc' ,it$ ,$ic$ t$e
!e&osit s$all be ma!e are concerne!. )ai! section rea!s in
(%ll as (ollo,s: )ec. /. 3ntr' o( &lainti(( %&on !e&ositing
val%e ,it$ National or =rovisional 2reas%rer. S @&on t$e
(iling o( t$e com&laint or at an' time t$erea(ter t$e &lainti((
s$all $ave t$e rig$t to ta+e or enter %&on t$e &ossession o(
t$e real or &ersonal &ro&ert' involve! i( $e !e&osits ,it$ t$e
National or =rovincial 2reas%rer its val%e as &rovisionall'
an! &rom&tl' ascertaine! an! (i4e! b' t$e co%rt $aving
9%ris!iction o( t$e &rocee!ings to be $el! b' s%c$ treas%rer
s%b9ect to t$e or!ers an! (inal !is&osition o( t$e co%rt. )%c$
!e&osit s$all be in mone' %nless in lie% t$ereo( t$e co%rt
a%t$oriBes t$e !e&osit o( a certi(icate o( !e&osit o( a
!e&ositor' o( t$e -e&%blic o( t$e =$ili&&ines &a'able on
!eman! to t$e National or =rovincial 2reas%rer as t$e case
ma' be in t$e amo%nt !irecte! b' t$e co%rt to be
!e&osite!. #(ter s%c$ !e&osit is ma!e t$e co%rt s$all or!er
t$e s$eri(( or ot$er &ro&er o((icer to (ort$,it$ &lace t$e
&lainti(( in &ossession o( t$e &ro&ert' involve!.
*t ,ill be note! t$at %n!er t$e a(ore.%ote! section t$e co%rt
$as t$e !iscretion to !etermine t$e &rovisional val%e ,$ic$
m%st be !e&osite! b' t$e &lainti(( to enable it "to ta+e or
enter %&on t$e &ossession o( t$e &ro&ert'." Notice to t$e
&arties is not in!is&ensable. *n inter&reting a similar
&rovision o( #ct No. 1C8/ t$is Co%rt in t$e 181C case o(
Manila -ailroa! Com&an' et al. vs. =are!es et al. 0C $el!:
2$e stat%te !irects t$at at t$e ver' o%tset ",$en
con!emnation &rocee!ings are bro%g$t b' an' rail,a'
cor&oration" t$e amo%nt o( t$e !e&osit is to be
"&rovisionall' an! &rom&tl' ascertaine! an! (i4e! b' t$e
co%rt." *t is ver' clear t$at it ,as not t$e intention o( t$e
C7
legislator t$at be(ore t$e or!er (i4ing t$e amo%nt o( t$e
!e&osit co%l! la,(%ll' be entere! t$e co%rt s$o%l! (inall'
an! !e(initel' !etermine ,$o are t$e tr%e o,ners o( t$e
lan!A an! a(ter !oing so give t$em a $earing as to its val%e
an! assess t$e tr%e val%e o( t$e lan! accor!ingl'. *n e((ect
t$at ,o%l! amo%nt to a !enial o( t$e rig$t o( &ossession o(
t$e lan!s involve! %ntil t$e concl%sion o( t$e &rocee!ings
,$en t$ere ,o%l! no nee! (or t$e (iling o( t$e !e&osit. O(
co%rse t$ere is not$ing in t$e stat%te ,$ic$ !enies t$e rig$t
o( t$e 9%!ge to $ear all &ersons claiming an interest in t$e
lan! an! co%rts s$o%l! or!inaril' give all s%c$ &ersons an
o&&ort%nit' to be $ear! i( t$at be &racticable an! ,ill ca%se
no !ela' in t$e &rom&t an! &rovisional ascertainment o( t$e
val%e o( t$e lan!. B%t t$e sco&e an! e4tent o( t$e in.%ir' is
le(t ,$oll' in t$e !iscretion o( t$e co%rt an! a (ail%re to
$ear t$e o,ners an! claimants o( t$e lan! ,$o ma' or ma'
not be +no,n at t$e time o( t$e entr' o( t$e or!er in no
,ise e((ects t$e vali!it' o( t$e or!er. . . .
=.D. No. 0/ $o,ever e((ectivel' removes t$e !iscretion o(
t$e co%rt in !etermining t$e &rovisional val%e. 6$at is to be
!e&osite! is an amo%nt e.%ivalent to t$e assesse! val%e (or
ta4ation &%r&ose. No $earing is re.%ire! (or t$at &%r&ose.
#ll t$at is nee!e! is notice to t$e o,ner o( t$e &ro&ert'
so%g$t to be con!emne!.
Clearl' t$ere(ore res&on!ent 7%!ge eit$er !eliberatel'
!isregar!e! =.D. No. 0/ or ,as totall' %na,are o( its
e4istence an! t$e cases a&&l'ing t$e same.
*n an' event &etitioner !e&osite! t$e &rovisional val%e (i4e!
b' t$e co%rt. #s a matter o( rig$t it ,as entitle! to be
&lace! in &ossession o( t$e &ro&ert' involve! in t$e
com&laints at once &%rs%ant to bot$ )ection / o( -%le G7
an! =.D. No. 0/. -es&on!ent Co%rt $a! t$e corres&on!ing
!%t' to or!er t$e s$eri(( or an' ot$er &ro&er o((icer to
(ort$,it$ &lace t$e &etitioner in s%c$ &ossession. *nstea! o(
com&l'ing ,it$ t$e clear man!ate o( t$e la, res&on!ent
7%!ge c$ose to ignore an! overloo+ it. Moreover %&on
se&arate motions (or reconsi!eration (ile! b' t$e !e(en!ants
in Civil Cases Nos. C818 an! C818 $e iss%e! a ne, Or!er
increasing t$e &rovisional val%es o( t$e &ro&erties involve!
t$erein. No $earing ,as $el! on t$e motions. #s a matter o(
(act as t$e recor!s s$o, t$e motion (or reconsi!eration
(ile! b' !e(en!ants 7es%s GonBaga et al. in Civil Case No.
C818 is !ate! 11 7%l' 1885 ,$ile t$e Or!er granting bot$
motions ,as iss%e! t$e ne4t !a' 1/ 7%l' 1885. 2$e motion
(or reconsi!eration in Civil Case No. C818 !oes not even
contain a notice o( $earing. *t is t$en a mere scra& o( &a&erA
it &resents no .%estion ,$ic$ merits t$e attention an!
consi!eration o( t$e co%rt. *t is not even a mere motion (or it
!oes not com&l' ,it$ t$e r%les more &artic%larl' )ections 0
an! C -%le 1C o( t$e -%les o( Co%rtA t$e Cler+ o( Co%rt t$en
$a! no rig$t to receive it. C5
2$ere ,as moreover a m%c$ stronger reason ,$' t$e
res&on!ent Co%rt s$o%l! not $ave iss%e! t$e 1/ 7%l' 1885
Or!er increasing t$e &rovisional val%es o( t$e GonBaga lots
in Civil Cases Nos. C818 an! C818. #(ter $aving (i4e! t$ese
&rovisional val%es albeit erroneo%sl' an! %&on !e&osit b'
&etitioner o( t$e sai! amo%nts res&on!ent 7%!ge lost as
,as $el! in Manila -ailroa! Com&an' vs. =are!es "&lenar'
control over t$e or!er (i4ing t$e amo%nt o( t$e !e&osit an!
$as no &o,er to ann%l amen! or mo!i(' it in matters o(
s%bstance &en!ing t$e co%rse o( t$e con!emnation
&rocee!ings." 2$e reason (or t$is is t$at a contrar' r%ling
,o%l! !e(eat t$e ver' &%r&ose o( t$e la, ,$ic$ is to &rovi!e
a s&ee!' an! s%mmar' &roce!%re ,$ereb' t$e &eaceable
&ossession o( t$e &ro&ert' s%b9ect o( t$e e4&ro&riation
&rocee!ings "ma' be sec%re! ,it$o%t t$e !ela's inci!ent to
&rolonge! an! ve4atio%s litigation to%c$ing t$e o,ners$i&
an! val%e o( s%c$ lan!s ,$ic$ s$o%l! not be &ermitte! to
!ela' t$e &rogress o( t$e ,or+."
Com&o%n!ing t$e above error an! t$e ca&ricio%sness ,it$
,$ic$ it ,as committe! is res&on!ent 7%!geHs re(%sal to
&lace t$e &etitioner in &ossession o( t$e &ro&ert' or iss%e
t$e ,rit o( &ossession !es&ite t$e (act t$at t$e latter $a!
li+e,ise !e&osite! t$e a!!itional amo%nt calle! (or b' t$e
1/ 7%l' 1885 Or!er. *nstea! res&on!ent 7%!ge iss%e! t$e 1G
7%l' 1885 Or!er !irecting t$e !e(en!ants to state in ,riting
,it$in t,ent'D(o%r ;/0< $o%rs ,$et$er or not t$e' ,o%l!
acce&t an! ,it$!ra, t$e amo%nts !e&osite! b' t$e
&etitioner (or eac$ o( t$em " as (inal an! (%ll satis(action o(
t$e val%e o( t$eir res&ective &ro&ert' ;sic< a((ecte! b' t$e
e4&ro&riation" an! stating at t$e same time t$at t$e ,rit ,ill
be iss%e! a(ter s%c$ mani(estation an! acce&tance an!
recei&t o( t$e amo%nts. 2$e above Or!er $as absol%tel' no
legal basis even as it also %n9%stl' o&&ressivel' an!
C8
ca&ricio%sl' com&els t$e &etitioner to acce&t t$e res&on!ent
7%!geHs !etermination o( t$e &rovisional val%e as t$e 9%st
com&ensation a(ter t$e !e(en!ants s$all $ave mani(este!
t$eir con(ormit' t$ereto. He t$%s s%bor!inate! $is o,n
9%!gment to t$at o( t$e !e(en!antsH beca%se $e ma!e t$e
latter t$e (inal a%t$orit' to !etermine s%c$ 9%st
com&ensation. 2$is Co%rt r%le! in 34&ort =rocessing Zone
#%t$orit' vs. D%la' et al. C/ t$at t$e !etermination o( 9%st
com&ensation in eminent !omain cases is a 9%!icial
(%nctionA accor!ingl' 6e !eclare! as %nconstit%tional an!
voi! (or being inter alia im&ermissible encroac$ment on
9%!icial &rerogatives ,$ic$ ten!s to ren!er t$e Co%rt in%tile
in a matter ,$ic$ %n!er t$e Constit%tion is reserve! to it
(or (inal !etermination t$e met$o! o( ascertaining 9%st
com&ensation &rescribe! in =.D. Nos. 7G 0G0 780 an! 1C11
to ,it: t$e mar+et val%e as !eclare! b' t$e o,ner or
a!ministrator or s%c$ mar+et val%e as !etermine! b' t$e
assessor ,$ic$ever is lo,er in t$e (irst t$ree ;1< !ecrees
an! t$e val%e !eclare! b' t$e o,ner or a!ministrator or
an'one $aving legal interest in t$e &ro&ert' or t$e val%e as
!etermine! b' t$e assessor &%rs%ant to t$e -eal =ro&ert'
2a4 Co!e ,$ic$ever is lo,er &rior to t$e recommen!ation
or !ecision o( t$e a&&ro&riate Government o((ice to ac.%ire
t$e &ro&ert' in t$e last mentione! !ecree. *( t$e legislat%re
or t$e e4ec%tive !e&artment cannot even im&ose %&on t$e
co%rt $o, 9%st com&ensation s$o%l! be !etermine! it ,o%l!
be (ar more ob9ectionable an! im&ermissible (or res&on!ent
7%!ge to grant t$e !e(en!ants in an eminent !omain case
s%c$ &o,er an! a%t$orit'.
6it$o%t &er$a&s inten!ing it to be so t$ere is not onl' a
clear case o( ab!ication o( 9%!icial &rerogative b%t also a
com&lete !isregar! b' res&on!ent 7%!ge o( t$e &rovisions o(
-%le G7 as to t$e &roce!%re to be (ollo,e! a(ter t$e
&etitioner $as !e&osite! t$e &rovisional val%e o( t$e
&ro&ert'. *t m%st be recalle! t$at t$ree ;1< sets o(
!e(en!ants (ile! motions to !ismiss &%rs%ant to )ection 1
-%le G7 o( t$e -%les o( Co%rtA )ection 0 o( t$e same r%le
&rovi!es t$at t$e co%rt m%st r%le on t$em an! in t$e event
t$at it overr%les t$e motions or ,$en an' &art' (ails to
&resent a !e(ense as re.%ire! in )ection 1 it s$o%l! enter
an or!er o( con!emnation !eclaring t$at t$e &etitioner $as a
la,(%l rig$t to ta+e t$e &ro&ert' so%g$t to be con!emne!.
#s ma' be gleane! (rom t$e /C 7%ne 1885 Or!er t$e
res&on!ent 7%!ge (o%n! t$at t$e &etitioner $as t$at rig$t
an! t$at "t$ere ,ill be a ;sic< &aramo%nt &%blic interest to
be serve! b' t$e e4&ro&riation o( t$e !e(en!antsH
&ro&erties." #ccor!ingl' consi!ering t$at t$e &arties
s%bmitte! neit$er a com&romise agreement as to t$e 9%st
com&ensation nor a sti&%lation to !is&ense ,it$ t$e
a&&ointment o( commissioners an! to leave t$e
!etermination o( 9%st com&ensation to t$e co%rt on t$e basis
o( certain criteria res&on!ent 7%!ge ,as !%t' bo%n! to set
in motion )ection C o( -%le G7A sai! section !irects t$e co%rt
to a&&oint not more t$an t$ree ;1< com&etent an!
!isintereste! &ersons as commissioners to ascertain an!
re&ort to it regar!ing t$e 9%st com&ensation (or t$e &ro&ert'
so%g$t to be ta+en. )%c$ commissioners s$all &er(orm t$eir
!%ties in t$e manner &rovi!e! (or in )ection GA %&on t$e
(iling o( t$eir re&ort t$e co%rt ma' a(ter a &erio! o( ten ;15<
!a's ,$ic$ it m%st grant to t$e &arties in or!er t$at t$e
latter ma' (ile t$eir ob9ections to s%c$ re&ort an! a(ter
$earing &%rs%ant to )ection 8 acce&t an! ren!er 9%!gment
in accor!ance t$ere,it$ or (or ca%se s$o,n recommit t$e
same to t$e commissioners (or (%rt$er re&ort o( (acts. 2$e
co%rt ma' also set asi!e t$e re&ort an! a&&oint ne,
commissioners or it ma' acce&t t$e re&ort in &art an!
re9ect it in &artA an! it ma' ma+e s%c$ or!er or ren!er s%c$
9%!gment as s$all sec%re to t$e &etitioner t$e &ro&ert'
essential to t$e e4ercise o( its rig$t o( con!emnation an! to
t$e !e(en!ant 9%st com&ensation (or t$e &ro&ert' so ta+en.
Not satis(ie! ,it$ t$e (oregoing violations o( la, an!
insisting %&on $is o,n &roce!%re res&on!ent 7%!ge
!eclare! in $is Or!er o( 18 7%l' 1885 t$at t$e &rovisional
amo%nts $e (i4e! later increase! ,it$ res&ect to t$e
&ro&erties o( t$e GonBagas s$all be consi!ere! as t$e (%ll
&a'ment o( t$e val%e o( t$e &ro&erties a(ter t$e !e(en!ants
in Civil Cases Nos. C818 C818 C805 C80/ an! C801 s$all
$ave (ile! t$eir mani(estationsA $e also r%le! t$at t$e ,rit o(
&ossession ,ill be iss%e! onl' a(ter t$e latter s$all $ave
receive! t$e sai! amo%nts. 2$is Or!er an! t$e recor!s
be(ore t$is Co%rt !o not !isclose t$at t$e !e(en!ants in Civil
Cases Nos. C801 an! C800 (ile! an' mani(estationA 'et in
t$e Or!er res&on!ent 7%!ge ,$imsicall' an! arbitraril'
consi!ere! t$e soDcalle! &rovisional val%es (i4e! t$erein as
C8
t$e (inal val%es. B' s%c$ Or!er t$e case ,as in (act
terminate! an! t$e ,rit o( e4ec%tion t$en became a mere
inci!ent o( an e4ec%tion o( a 9%!gment. 2$e rig$t o( t$e
&etitioner to ta+e or enter into &ossession o( t$e &ro&ert'
%&on t$e (iling o( t$e com&laint grante! b' )ection / o( -%le
G7 an! =.D. No. 0/ ,as totall' negate! !es&ite com&liance
,it$ t$e !e&osit re.%irement %n!er t$e latter la,.
Cit' Government o( 2ole!o Cit' vs. Fernan!os et al: !oes
not a&&l' to t$e instant &etition beca%se at t$e &reDtrial
con(erence $el! t$erein t$e &etitioner s%bmitte! to t$e
!iscretion o( t$e co%rt as to t$e correct val%ation &rivate
res&on!ents state! t$at t$e' $ave no ob9ections an! are in
con(ormit' ,it$ t$e &rice o( =15.55 &er s.%are meter as
reasonable com&ensation (or t$eir lan! an! t$e Cit'
#ssessor in(orme! t$e co%rt o( t$e c%rrent mar+et an!
a&&raisal val%es o( t$e &ro&erties in t$e area an! t$e (actors
to be consi!ere! in t$e !etermination o( s%c$. 2$e &arties
&resente! t$eir !oc%mentar' e4$ibits. *n e((ect t$ere(ore
t$e &arties t$emselves agree! to s%bmit to a 9%!icial
!etermination on t$e matter o( 9%st com&ensation an! t$at
9%!gment be ren!ere! base! t$ereon. *n t$e instant case
no &reDtrial ,as con!%cte!A t$e &rocee!ings ,ere still at
t$at state ,$ere t$e &rovisional val%e ,as 'et to be
!etermine!A an! t$e &arties ma!e no agreement on 9%st
com&ensation.
<uezon Cit# v. %ricta
Facts: WC &asse! an Or!inance reg%lating t$e establis$ment
maintenance an! o&eration o( &rivate memorial t'&e cemeter' or
b%rial gro%n! ,it$in t$e 9%ris!iction o( WC. )ection 8 o( t$e
Or!inance &rovi!es t$at at least GY o( t$e total area o( a memorial
&ar+ cemeter' s$all be set asi!e (or c$arit' b%rial o( !ecease!
&ersons ,$o are &a%&ers P $ave been resi!ents o( WC (or at least C
'ears &rior to t$eir !eat$. )even 'ears a(ter t$e enactment o( t$e
Or!inance t$e WC Co%ncil &asse! a resol%tion re.%esting t$e Cit'
3ngineer to sto& an' (%rt$er selling o( memorial &ar+s in WC ,$ere
t$e o,ners $ave (aile! to !onate t$e re.%ire! GY cemeter' s&ace.
2$e Cit' 3ngineer noti(ie! Himla'ang =ili&ino *nc. t$at t$e
Or!inance ,o%l! be en(orce! so Himla'an (ile! a &etition ,it$ t$e
CF* see+ing to ann%l )ec 8 o( t$e Or!inance. CF* !eclare! )ec 8
n%ll an! voi!. M-: !enie!
*ss%e: 6ON t$e or!inance is a%t$oriBe! %n!er WC C$arter an! a
vali! e4ercise o( &olice &o,er. NO.
-estatement o( certain basic &rinci&les: Occ%&'ing t$e
(ore(ront in t$e bill o( rig$ts is t$e &rovision ,$ic$ states
t$at Hno &erson s$all be !e&rive! o( li(e libert' or &ro&ert'
,it$o%t !%e &rocess o( la,H ;#rt. *ll )ection 1 s%b&aragra&$
1 Constit%tion<. On t$e ot$er $an! t$ere are t$ree
in$erent &o,ers o( government b' ,$ic$ t$e state
inter(eres ,it$ t$e &ro&ert' rig$ts namel'D. ;1< &olice
&o,er ;/< eminent !omain ;1< ta4ation. 2$ese are sai! to
e4ist in!e&en!entl' o( t$e Constit%tion as necessar'
attrib%tes o( sovereignt'.
=olice &o,er is !e(ine! b' Fre%n! as Ht$e &o,er o(
&romoting t$e &%blic ,el(are b' restraining an! reg%lating
t$e %se o( libert' an! &ro&ert'H ;W%ote! in =olitical La, b'
2ana!a an! Carreon KD11 &. C5<. *t is %s%all' e4erte! in
or!er to merel' reg%late t$e %se an! en9o'ment o( &ro&ert'
o( t$e o,ner. *( $e is !e&rive! o( $is &ro&ert' o%trig$t it is
not ta+en (or &%blic %se b%t rat$er to !estro' in or!er to
&romote t$e general ,el(are. *n &olice &o,er t$e o,ner
!oes not recover (rom t$e government (or in9%r' s%staine!
in conse.%ence t$ereo( ;1/ C.7. G/1<. *t $as been sai! t$at
&olice &o,er is t$e most essential o( government &o,ers at
times t$e most insistent an! al,a's one o( t$e least
limitable o( t$e &o,ers o( government ;-%b' vs. =rovincial
Boar! 18 =$iL GG5A *c$ong vs. Hernan!eB 1788C Ma' 11
18C7<. 2$is &o,er embraces t$e ,$ole s'stem o( &%blic
reg%lation ;@.). vs. Lins%'a Fan 15 =$iL 150<. 2$e )%&reme
Co%rt $as sai! t$at &olice &o,er is so (arDreac$ing in sco&e
t$at it $as almost become im&ossible to limit its s,ee&. #s it
!erives its e4istence (rom t$e ver' e4istence o( t$e state
itsel( it !oes not nee! to be e4&resse! or !e(ine! in its
sco&e. Being coe4tensive ,it$ sel(D&reservation an! s%rvival
itsel( it is t$e most &ositive an! active o( all governmental
&rocesses t$e most essential insistent an! illimitable
3s&eciall' it is so %n!er t$e mo!ern !emocratic (rame,or+
,$ere t$e !eman!s o( societ' an! nations $ave m%lti&lie!
to almost %nimaginable &ro&ortions. 2$e (iel! an! sco&e o(
&olice &o,er $ave become almost bo%n!less 9%st as t$e
(iel!s o( &%blic interest an! &%blic ,el(are $ave become
almost all embracing an! $ave transcen!e! $%man
G5
(oresig$t. )ince t$e Co%rts cannot (oresee t$e nee!s an!
!eman!s o( &%blic interest an! ,el(are t$e' cannot !elimit
be(ore$an! t$e e4tent or sco&e o( t$e &olice &o,er b' ,$ic$
an! t$ro%g$ ,$ic$ t$e state see+s to attain or ac$ieve
&%blic interest an! ,el(are. ;*c$ong vs. Hernan!eB LD788C
Ma' 11 18C7<.
2$e &olice &o,er being t$e most active &o,er o( t$e
government an! t$e !%e &rocess cla%se being t$e broa!est
station on governmental &o,er t$e con(lict bet,een t$is
&o,er o( government an! t$e !%e &rocess cla%se o( t$e
Constit%tion is o(tentimes inevitable.
*t ,ill be seen (rom t$e (oregoing a%t$orities t$at &olice
&o,er is %s%all' e4ercise! in t$e (orm o( mere reg%lation or
restriction in t$e %se o( libert' or &ro&ert' (or t$e &romotion
o( t$e general ,el(are. *t !oes not involve t$e ta+ing or
con(iscation o( &ro&ert' ,it$ t$e e4ce&tion o( a (e, cases
,$ere t$ere is a necessit' to con(iscate &rivate &ro&ert' in
or!er to !estro' it (or t$e &%r&ose o( &rotecting t$e &eace
an! or!er an! o( &romoting t$e general ,el(are as (or
instance t$e con(iscation o( an illegall' &ossesse! article
s%c$ as o&i%m an! (irearms.
*t seems to t$e co%rt t$at )ection 8 o( Or!inance No. G118
)eries o( 18G0 o( W%eBon Cit' is not a mere &olice reg%lation
b%t an o%trig$t con(iscation. *t !e&rives a &erson o( $is
&rivate &ro&ert' ,it$o%t !%e &rocess o( la, na' even
,it$o%t com&ensation.
2$ere is no reasonable relation bet,een t$e setting asi!e o(
at least si4 ;G< &ercent o( t$e total area o( an &rivate
cemeteries (or c$arit' b%rial gro%n!s o( !ecease! &a%&ers
an! t$e &romotion o( $ealt$ morals goo! or!er sa(et' or
t$e general ,el(are o( t$e &eo&le. 2$e or!inance is act%all'
a ta+ing ,it$o%t com&ensation o( a certain area (rom a
&rivate cemeter' to bene(it &a%&ers ,$o are c$arges o( t$e
m%nici&al cor&oration. *nstea! o( b%il!ing or maintaining a
&%blic cemeter' (or t$is &%r&ose t$e cit' &asses t$e b%r!en
to &rivate cemeteries.
2$e e4&ro&riation ,it$o%t com&ensation o( a &ortion o(
&rivate cemeteries is not covere! b' )ection 1/;t< o(
-e&%blic #ct C17 t$e -evise! C$arter o( W%eBon Cit' ,$ic$
em&o,ers t$e cit' co%ncil to &ro$ibit t$e b%rial o( t$e !ea!
,it$in t$e center o( &o&%lation o( t$e cit' an! to &rovi!e (or
t$eir b%rial in a &ro&er &lace s%b9ect to t$e &rovisions o(
general la, reg%lating b%rial gro%n!s an! cemeteries. 6$en
t$e LGC Batas =ambansa Blg. 117 &rovi!es in )ection 177
;.< t$at a )angg%niang &anl%ngso! ma' "&rovi!e (or t$e
b%rial o( t$e !ea! in s%c$ &lace an! in s%c$ manner as
&rescribe! b' la, or or!inance" it sim&l' a%t$oriBes t$e cit'
to &rovi!e its o,n cit' o,ne! lan! or to b%' or e4&ro&riate
&rivate &ro&erties to constr%ct &%blic cemeteries. 2$is $as
been t$e la, an! &ractise in t$e &ast. *t contin%es to t$e
&resent. 34&ro&riation $o,ever re.%ires &a'ment o( 9%st
com&ensation. 2$e .%estione! or!inance is !i((erent (rom
la,s an! reg%lations re.%iring o,ners o( s%b!ivisions to set
asi!e certain areas (or streets &ar+s &la'gro%n!s an!
ot$er &%blic (acilities (rom t$e lan! t$e' sell to b%'ers o(
s%b!ivision lots. 2$e necessities o( &%blic sa(et' $ealt$ an!
convenience are ver' clear (rom sai! re.%irements ,$ic$
are inten!e! to ins%re t$e !evelo&ment o( comm%nities ,it$
sal%brio%s an! ,$olesome environments. 2$e bene(iciaries
o( t$e reg%lation in t%rn are ma!e to &a' b' t$e
s%b!ivision !evelo&er ,$en in!ivi!%al lots are sol! to $omeD
o,ners.
#s a matter o( (act t$e &etitioners rel' solel' on t$e general
,el(are cla%se or on im&lie! &o,ers o( t$e m%nici&al
cor&oration not on an' e4&ress &rovision o( la, as stat%tor'
basis o( t$eir e4ercise o( &o,er. 2$e cla%se $as al,a's
receive! broa! an! liberal inter&retation b%t ,e cannot
stretc$ it to cover t$is &artic%lar ta+ing. Moreover t$e
.%estione! or!inance ,as &asse! a(ter Himla'ang =ili&ino
*nc. $a! incor&orate!. receive! necessar' licenses an!
&ermits an! commence! o&erating. 2$e se.%estration o( si4
&ercent o( t$e cemeter' cannot even be consi!ere! as
$aving been im&lie!l' ac+no,le!ge! b' t$e &rivate
res&on!ent ,$en it acce&te! t$e &ermits to commence
o&erations.
Cit# o! Manila v. Arellano College
Facts: )ection 1 o( -e&%blic #ct No. /G7 a%t$oriBes cities an!
m%nici&alities to contract loans (rom t$e -econstr%ction Finance
Cor&oration t$e =$ili&&ine National Ban+ an!?or ot$er entit' or
&erson at t$e rate o( interest not e4cee!ing eig$t &er cent ann%m
(or t$e &%r&ose o( &%rc$asing or e4&ro&riating $omesites ,it$in
t$eir res&ective territorial 9%ris!iction an! reselling t$em at cost to
G1
resi!ents o( t$e sai! cities an! m%nici&alities. 2$e co%rt belo,
r%le! t$at t$is &rovision em&o,ers cities to &%rc$ase b%t not to
e4&ro&riate lan!s (or t$e &%r&ose o( s%b!ivision an! resale an! so
!ismisse! t$e &resent action ,$ic$ see+s to con!emn (or t$e
&%r&ose 9%st state! several &arcels o( lan! $aving a combine! area
o( 7/75 s.%are meters an! sit%ate! on Legar!a )treet Cit' o(
Manila.
*ss%e: 6ON #ct /G7 em&o,ers cities to e4&ro&riate as ,ell as to
&%rc$ase lan!s (or $omesites. :3).
2$e ,or! "e4&ro&riating" ta+en singl' or ,it$ t$e te4t is
s%sce&tible o( onl' meaning. B%t t$is &o,er to e4&ro&riate is
necessaril' s%b9ect to t$e limitations an! con!itions note! in
t$e !ecisions above cite!. ;)ee belo,.< 2$e National
Government ma' not con(er its instr%mentalities a%t$orit'
,$ic$ itsel( ma' not e4ercise.
G%i!o vs. -%ral =rogress #!ministration: e4tent o( t$e
=$ili&&ine GovernmentHs &o,er to con!emn &rivate &ro&ert'
(or resale: *t $as been tr%l' sai! t$at t$e assertion o( t$e
rig$t on t$e &art o( t$e legislat%re to ta+e t$e &ro&ert' o(
one citiBen an! trans(er it to anot$er even (or a (%ll
com&ensation ,$en t$e &%blic interest is not &romote!
t$ereb' is claiming a !es&otic &o,er an! one inconsistent
,it$ ever' 9%st &rinci&le an! (%n!amental ma4im o( a (ree
government.
*n a broa! sense e4&ro&riation o( large estates tr%sts in
&er&et%it' an! lan! t$at embraces a ,$ole to,n or large
section o( a to,n or cit' bears !irect relation to t$e &%blic
,el(are. 2$e siBe o( t$e lan! e4&ro&riate! t$e large n%mber
o( &eo&le bene(ite! an! t$e e4tent o( social an! economic
re(orm sec%re! b' t$e con!emnation clot$es t$e
e4&ro&riation ,it$ &%blic interest an! &%blic %se. 2$e
e4&ro&riation in s%c$ cases ten!s to abolis$ economic
slaver' (e%!alistic &ractices en!less con(licts bet,een
lan!lor!s an! tenants an! ot$er evils inimical to comm%nit'
&ros&erit' an! contentment an! &%blic &eace an! or!er.
#lt$o%g$ co%rts are not in agreement as to t$e tests to
a&&lie! in !etermining ,$et$er t$e %se is &%blic or not
some go so (ar in t$e !irection o( a liberal constr%ction as to
$ol! t$at &%blic %se is s'non'mo%s ,it$ &%blic bene(it
&%blic %tilit' or &%blic a!vantage an! to a%t$oriBe t$e
e4ercise o( t$e &o,er o( eminent !omain to &romote s%c$
&%blic bene(it etc. es&eciall' ,$ere t$e interest involve!
are o( consi!erable magnit%!e.
*n some instances sl%msites $ave been ac.%ire! b'
con!emnation. 2$e $ig$est co%rt o( Ne, :or+ )tate $as
r%le! t$at sl%m clearance an! erection o( $o%ses (or lo,D
income (amilies ,ere &%blic &%r&ose (or ,$ic$ Ne, :or+ Cit'
Ho%sing a%t$orities co%l! e4ercise t$e &o,er o(
con!emnation. an! t$is !ecision ,as (ollo,e! b' similar
ones in ot$er states. 2$e %n!erl'ing reasons (or t$ese
!ecisions are t$at t$e !estr%ction o( congeste! areas an!
%nsanitar' !,ellings !iminis$e! t$e &otentialities o(
e&i!emics crime an! ,aste &revents t$e s&rea! o( crime
an! !iseases to %na((ecte! areas en$ances t$e &$'sical
an! moral val%e o( t$e s%rro%n!ing comm%nities an!
&romote t$e sa(et' an! ,el(are o( t$e &%blic in general.
2$e con!emnation o( a small &ro&ert' in be$al( o( 15 /5 or
C5 &ersons an! t$eir (amilies !oes not ins%re to t$e bene(it
o( t$e &%blic to a !egree s%((icient to give t$e %se &%blic
c$aracter. 2$e e4&ro&riation &rocee!ings at bar $ave been
instit%te! (or t$e economic relie( o( a (e, (amilies !evoi! o(
an' consi!eration o( &%blic &eace an! or!er or ot$er &%blic
a!vantage.
No (i4e! line o( !emarcation bet,een ,$at ta+ing is (or
&%blic %se an! ,$at is not can ma!eA eac$ case $as to be
9%!ge! accor!ing to its &ec%liar circ%mstances. *t s%((ices to
sa' (or t$e &%r&ose o( t$is !ecision t$at t$e case %n!er
consi!eration is (ar ,anting in t$ose elements ,$ic$ ma+e
(or &%blic convenience or &%blic %se. *( %&$el! t$is case
,o%l! o&en t$e gates to more o&&ressive e4&ro&riations. *(
t$is e4&ro&riation be constit%tional ,e see no reason ,$' a
15D 1CD or /CD$ectare (arm lan! mig$t not be e4&ro&riate!
an! s%b!ivi!e! an! sol! to t$ose ,$o ,ant to o,n a
&ortion o( it. to ma+e t$e analog' closer ,e (in! no reason
,$' t$e -%ral =rogress #!ministration co%l! not ta+e b'
con!emnation an %rban lot containing an! area o( 1555 or
/555 s.%are meters (or s%b!ivision into tin' lots (or resale
to its occ%&ations or t$ose ,$o ,ant to b%il! t$ereon.
Kie,e! (rom anot$er angle t$e case at bar is ,ea+er (or t$e
con!emnor. *n t$e (irst &lace t$e lan! t$at is t$e s%b9ect o(
t$e &resent e4&ro&riation is onl' oneDt$ir! o( t$e lan!
so%g$t to be ta+en in t$e G%i!o case an! abo%t t,oDt$ir!s
o( t$at involve! in t$e Bor9a con!emnation &rocee!ing. *n
G/
t$e secon! &lace t$e #rellano CollegesH lan! is sit%ate! in a
$ig$l' commercial section o( t$e cit' an! is occ%&ie! b'
&ersons ,$o are not bona (i!e tenants. Lastl' t$is lan! ,as
bro%g$t b' t$e !e(en!ant (or a %niversit' site to ta+e t$e
&lace o( rente! b%il!ings t$at are %ns%itable (or sc$ools o(
$ig$er learning.
2o a%t$oriBe t$e con!emnation o( an' &artic%lar lan! b' a
grantee o( t$e &o,er o( eminent !omain a necessit' m%st
e4ist (or t$e ta+ing t$ereo( (or t$e &ro&ose! %ses an!
&%r&oses. *n Cit' o( Manila vs. Manila C$inese Comm%nit'
t$is Co%rt citing #merican !ecision lai! !one t$is r%le: 2$e
ver' (o%n!ation o( t$e rig$t to e4ercise eminent !omain is a
gen%ine necessit' an! t$at necessit' m%st be o( a &%blic
c$aracter. 2$e ascertainment o( t$e necessit' m%st &rece!e
or accom&an' an! not (ollo, t$e ta+ing o( t$e lan!. ")o
great is t$e regar! o( t$e la, (or &rivate &ro&ert' t$at it ,ill
not a%t$oriBe t$e least violation o( it even (or t$e &%blic
goo! %nless t$ere e4ist a ver' great necessit' t$ereo(."
Necessit' ,it$in t$e r%le t$at t$e &artic%lar &ro&ert' to be
e4&ro&riate! m%st be necessar' !oes not mean an absol%te
b%t onl' a reasonable or &ractical necessit' s%c$ as ,o%l!
combine t$e greatest bene(it to t$e &%blic ,it$ t$e least
inconvenience an! e4&ense to t$e con!emning &art' an!
&ro&ert' o,ner consistent ,it$ s%c$ bene(its.
B%t meas%re! even b' t$is stan!ar! an! (orgetting (or a
moment t$e &rivate c$aracter o( t$e inten!e! %se necessit'
(or t$e con!emnation $as not been s$o,n. 2$e lan! in
.%estion $as cost t$e o,ner =105555. 2$e &eo&le (or
,$ose bene(it t$e con!emnation is being %n!erta+en are so
&oor t$e' co%l! ill a((or! to meet t$is $ig$ &rice %nless t$e'
inten! to borro, t$e mone' ,it$ a vie, to !is&osing o( t$e
&ro&ert' later (or a &ro(its. C$ea&er lan!s not !e!icate! to a
&%r&ose so ,ort$' as a sc$ool an! more s%ite! to t$e
occ%&antsH nee!s an! means i( reall' t$e' onl' ,ant to o,n
t$eir o,n $omes are &lent' else,$ere. On t$e ot$er $an!
t$e !e(en!ant not onl' $as investe! a consi!erable amo%nt
(or its &ro&ert' b%t $a! t$e &lans (or constr%ction rea!' an!
,o%l! $ave com&lete! t$e &ro9ect a long time ago $a! it not
been sto&&e! b' t$e cit' a%t$orities. #n! again ,$ile a
$an!(%l o( &eo&le stan! to &ro(its b' t$e e4&ro&riation t$e
!evelo&ment o( a %niversit' t$at $as a &resent enrollment
o( 8555 st%!ents ,o%l! be sacri(ice!. #n' goo! t$at ,o%l!
accr%e to t$e &%blic (rom &rovi!ing $omes to a (e, (amilies
(a!es into insigni(icance in com&arison ,it$ t$e &re&aration
o( a 'o%ng men an! 'o%ng ,omen (or %se(%l citiBens$i& an!
(or service to t$e government an! t$e comm%nit' a tas+
,$ic$ t$e government alone is not in a &osition to
%n!erta+e. #s t$e -%ral =rogress #!ministration t$e
national agenc' lan!s (or resale as $omesites an! to ,$ic$
t$e &etition to &%rc$ase t$e lan! in .%estion on be$al( o( t$e
occ%&ants ,as re(erre! b' t$e =resi!ent t%rning !o,n t$e
occ%&ants re.%est a(ter &ro&er investigation commente!
t$at "t$e necessit' o( t$e #rellano La, College to ac.%ire a
&ermanent site o( its o,n is im&erative not onl' beca%se
!enial o( t$e same ,o%l! $am&er t$e ob9ectives o( t$at
e!%cational instit%tion b%t it ,o%l! li+e,ise be ta+ing a
&ro&ert' inten!e! alrea!' (or &%blic bene(it." 2$e Ma'or o(
t$e Cit' o( Manila $imsel( con(esse! t$at $e believes t$e
&lainti(( is entitle! to +ee& t$is lan!.
G1
Cit# o! Manila v. Chinese Communit# o! Manila
Facts: 2$e Cit' o( Manila allege! t$at (or t$e &%r&ose o(
constr%cting t$e e4tension o( -iBal #ven%e Manila it is necessar'
(or it to ac.%ire o,ners$i& o( certain &arcels o( lan! sit%ate! in
Binon!o some o( ,$ic$ ,ere o,ne! an! %se! b' t$e C$inese
Comm%nit' o( Manila (or cemeter' &%r&oses. 2$e C$inese
Comm%nit' o( Manila !enie! t$at it ,as necessar' or e4&e!ient
t$at t$e sai! &arcels be e4&ro&riate! (or street &%r&osesA t$at i( t$e
constr%ction o( t$e street or roa! s$o%l! be consi!ere! a &%blic
necessit' ot$er ro%tes ,ere available ,$ic$ ,o%l! (%ll' satis(' t$e
&lainti((Hs &%r&oses at m%c$ less e4&ense an! ,it$o%t !ist%rbing
t$e resting &laces o( t$e !ea!A t$at it $a! a 2orrens title (or t$e
lan!s in .%estionA t$at t$e lan!s in .%estion $a! been %se! b' t$e
!e(en!ant (or cemeter' &%r&osesA t$at a great n%mber o( C$inese
,ere b%rie! in sai! cemeter'A t$at i( sai! e4&ro&riation be carrie!
into e((ect it ,o%l! !ist%rb t$e resting &laces o( t$e !ea! ,o%l!
re.%ire t$e e4&en!it%re o( a large s%m o( mone' in t$e trans(er or
removal o( t$e bo!ies to some ot$er &lace or site an! in t$e
&%rc$ase o( s%c$ ne, sites ,o%l! involve t$e !estr%ction o(
e4isting mon%ments an! t$e erection o( ne, mon%ments in t$eir
stea! an! ,o%l! create irre&arable loss an! in9%r' to t$e
!e(en!ant an! to all t$ose &ersons o,ning an! intereste! in t$e
graves an! mon%ments ,$ic$ ,o%l! $ave to be !estro'e!A t$at t$e
&lainti(( ,as ,it$o%t rig$t or a%t$orit' to e4&ro&riate sai! cemeter'
or an' &art or &ortion t$ereo( (or street &%r&osesA an! t$at t$e
e4&ro&riation in (act ,as not necessar' as a &%blic im&rovement.
2$e t$eor' o( t$e &lainti(( is t$at once it $as establis$e! t$e (act
%n!er t$e la, t$at it $as a%t$orit' to e4&ro&riate lan! it ma'
e4&ro&riate an' lan! it ma' !esireA t$at t$e onl' (%nction o( t$e
co%rt in s%c$ &rocee!ings is to ascertain t$e val%e o( t$e lan! in
.%estionA t$at neit$er t$e co%rt nor t$e o,ners o( t$e lan! can
in.%ire into t$e a!visible &%r&ose o( &%r&ose o( t$e e4&ro&riation or
as+ an' .%estions concerning t$e necessities t$ere(orA t$at t$e
co%rts are mere a&&raisers o( t$e lan! involve! in e4&ro&riation
G0
&rocee!ings an! ,$en t$e val%e o( t$e lan! is (i4e! b' t$e
met$o! a!o&te! b' t$e la, to ren!er a 9%!gment in (avor o( t$e
!e(en!ant (or its val%e.
*ss%e: 6ON t$e co%rts ma' in.%ire into an! $ear &roo( %&on t$e
necessit' o( t$e e4&ro&riationT :3).
*t cannot be !enie! i( t$e legislat%re %n!er &ro&er a%t$orit'
s$o%l! grant t$e e4&ro&riation o( a certain or &artic%lar
&arcel o( lan! (or some s&eci(ie! &%blic &%r&ose t$at t$e
co%rts ,o%l! be ,it$o%t 9%ris!iction to in.%ire into t$e
&%r&ose o( t$at legislation. *( %&on t$e ot$er $an! $o,ever
t$e legislat%re s$o%l! grant general a%t$orit' to a m%nici&al
cor&oration to e4&ro&riate &rivate lan! (or &%blic &%r&oses
t$e co%rts $ave am&le a%t$orit' in t$is 9%ris!iction %n!er
t$e &rovisions above .%ote! to ma+e in.%ir' an! to $ear
&roo( %&on an iss%e &ro&erl' &resente! concerning
,$et$er or not t$e lan!s ,ere &rivate an! ,$et$er t$e
&%r&ose ,as in (act &%blic.
2$e rig$t o( e4&ro&riation is not an in$erent &o,er in a
m%nici&al cor&oration an! be(ore it can e4ercise t$e rig$t
some la, m%st e4ist con(erring t$e &o,er %&on it. 6$en t$e
co%rts come to !etermine t$e .%estion t$e' m%st not onl'
(in! ;a< t$at a la, or a%t$orit' e4ists (or t$e e4ercise o( t$e
rig$t o( eminent !omain b%t ;b< also t$at t$e rig$t or
a%t$orit' is being e4ercise! in accor!ance ,it$ t$e la,. *n
t$e &resent case t$ere are t,o con!itions im&ose! %&on t$e
a%t$orit' conce!e! to t$e Cit' o( Manila : First t$e lan!
m%st be &rivateA an! secon! t$e &%r&ose m%st be &%blic.
2$e legislative !e&artment o( t$e government ,as rarel'
%n!erta+es to !esignate t$e &recise &ro&ert' ,$ic$ s$o%l!
be ta+en (or &%blic %se. *t $as generall' li+e in t$e &resent
case merel' con(erre! general a%t$orit' to ta+e lan! (or
&%blic %se ,$en a necessit' e4ists t$ere(or. 6e believe t$at
it can be con(i!entl' asserte! t$at %n!er s%c$ stat%te t$e
allegation o( t$e necessit' (or t$e a&&ro&riation is an
iss%able allegation ,$ic$ it is com&etent (or t$e co%rts to
!eci!e.
"*t is erroneo%s to s%&&ose t$at t$e legislat%re is be'on! t$e
control o( t$e co%rts in e4ercising t$e &o,er o( eminent
!omain eit$er as to t$e nat%re o( t$e %se or t$e necessit'
to t$e %se o( an' &artic%lar &ro&ert'. For i( t$e %se be not
&%blic or no necessit' (or t$e ta+ing e4ists t$e legislat%re
cannot a%t$oriBe t$e ta+ing o( &rivate &ro&ert' against t$e
,ill o( t$e o,ner not,it$stan!ing com&ensation ma' be
re.%ire!."
B%t as long as t$ere is a constit%tional or stat%tor'
&rovision !en'ing t$e rig$t to ta+e lan! (or an' %se ot$er
t$an a &%blic %se it occ%rs to %s t$at t$e .%estion ,$et$er
an' &artic%lar %se is a &%blic one or not is %ltimatel' at
least a 9%!icial .%estion. 2$e legislative ma' it is tr%e in
e((ect !eclare certain %ses to be &%blic an! %n!er t$e
o&eration o( t$e ,ellD+no,n r%le t$at a stat%te ,ill not be
!eclare! to be %nconstit%tional e4ce&t in a case (ree or
com&arativel' (ree (rom !o%bt t$e co%rts ,ill certainl'
s%stain t$e action o( t$e legislat%re %nless it a&&ears t$at
t$e &artic%lar %se is clearl' not o( a &%blic nat%re.
#rticle 108 o( t$e Civil Co!e &rovi!es t$at: "No one ma' be
!e&rive! o( $is &ro&ert' %nless it be b' com&etent
a%t$orit' (or some &%r&ose o( &roven &%blic %tilit' an!
a(ter &a'ment o( t$e &ro&er com&ensation. @nless t$is
re.%isite ;&roven &%blic %tilit' an! &a'ment< $as been
com&lie! ,it$ it s$all be t$e !%t' o( t$e co%rts to &rotect
t$e o,ner o( s%c$ &ro&ert' in its &ossession or to restore its
&ossession to $im as t$e case ma' be."
2$e ver' (o%n!ation o( t$e rig$t to e4ercise eminent !omain
is a gen%ine necessit' an! t$at necessit' m%st be o( a
&%blic c$aracter. 2$e ascertainment o( t$e necessit' m%st
&rece!e or accom&an' an! not (ollo, t$e ta+ing o( t$e
lan!.
2$e necessit' (or con(erring t$e a%t$orit' %&on a m%nici&al
cor&oration to e4ercise t$e rig$t o( eminent !omain is
a!mitte!l' ,it$in t$e &o,er o( t$e legislat%re. B%t ,$et$er
or not t$e m%nici&al cor&oration or entit' is e4ercising t$e
rig$t in a &artic%lar case %n!er t$e con!itions im&ose! b'
t$e general a%t$orit' is a .%estion ,$ic$ t$e co%rts $ave
t$e rig$t to in.%ire into.
2$e Cit' o( Manila can onl' e4&ro&riate &rivate &ro&ert'. *t is
a ,ell +no,n (act t$at cemeteries ma' be &%blic or &rivate.
2$e (ormer is a cemeter' %se! b' t$e general comm%nit'
or neig$bor$oo! or c$%rc$ ,$ile t$e latter is %se! onl' b'
a (amil' or a small &ortion o( t$e comm%nit' or
neig$bor$oo!. 6$ere a cemeter' is o&en to &%blic it is a
&%blic %se an! no &art o( t$e gro%n! can be ta+en (or ot$er
&%blic %ses %n!er a general a%t$orit'. 2$e cemeter' in
GC
.%estion seems to $ave been establis$e! %n!er
governmental a%t$orit' b' t$e )&anis$ GovernorDGeneral.
2$e cemeter' in .%estion ma' be %se! b' t$e general
comm%nit' o( C$inese ,$ic$ (act in t$e general
acce&tation o( t$e !e(inition o( a &%blic cemeter' ,o%l!
ma+e t$e cemeter' in .%estion &%blic &ro&ert'. *( t$at is
tr%e t$en o( co%rse t$e &etition o( t$e &lainti(( m%st be
!enie! (or t$e reason t$at t$e cit' o( Manila $as no
a%t$orit' or rig$t %n!er t$e la, to e4&ro&riate &%blic
&ro&ert'.
3ven granting t$at a necessit' e4ists (or t$e o&ening o( t$e
street in .%estion t$e recor! contains no &roo( o( t$e
necessit' o( o&ening t$e same t$ro%g$ t$e cemeter'. 2$e
recor! s$o,s t$at a!9oining an! a!9acent lan!s $ave been
o((ere! to t$e cit' (ree o( c$arge ,$ic$ ,ill ans,er ever'
&%r&ose o( t$e &lainti((.
Camarines (ur v. CA /supra- see p. =01
Municipalit# o! Parana>ue v. $.M. Realt# Corporation
Facts: =%rs%ant to )angg%niang Ba'an -esol%tion No. 81D8C
)eries o( 1881 t$e M%nici&alit' o( =araRa.%e (ile! a Com&laint (or
e4&ro&riation against K.M. -ealt' Cor&oration over t,o &arcels o(
lan!. #llege!l' t$e com&laint ,as (ile! "(or t$e &%r&ose o(
alleviating t$e living con!itions o( t$e %n!er&rivilege! b' &rovi!ing
$omes (or t$e $omeless t$ro%g$ a socialiBe! $o%sing &ro9ect."
=arent$eticall' it ,as also (or t$is state! &%r&ose t$at &etitioner
&%rs%ant to its )angg%niang Ba'an -esol%tion No. C77 )eries o(
1881 &revio%sl' ma!e an o((er to enter into a negotiate! sale o(
t$e &ro&ert' ,it$ &rivate res&on!ent ,$ic$ t$e latter !i! not
acce&t.
-2C: gave !%e co%rse to &etition an! a%t$oriBe! &etitioner to ta+e
&ossession o( t$e s%b9ect &ro&ert' %&on !e&osit ,it$ its cler+ o(
co%rt o( an amo%nt e.%ivalent to 1C &ercent o( its (air mar+et val%e
base! on its c%rrent ta4 !eclaration. KM allege! t$at ;a< t$e
com&laint (aile! to state a ca%se o( action beca%se it ,as (ile!
&%rs%ant to a resol%tion an! not to an or!inance as re.%ire! b' t$e
LGC an! ;b< t$e ca%se o( action i( an' ,as barre! b' a &rior
9%!gment or res 9%!icata. Case !ismisse! M- !enie!.
C#: a((irme!.
*ss%es: 1. 6ON a resol%tion !%l' a&&rove! b' t$e m%nici&al co%ncil
$as t$e same (orce an! e((ect o( an or!inance. NO
=.%e: a resol%tion a&&rove! b' t$e m%nici&al co%ncil (or t$e
&%r&ose o( initiating an e4&ro&riation case "s%bstantiall'
com&lies ,it$ t$e re.%irements o( t$e la," beca%se t$e
terms "or!inance" an! "resol%tion" are s'non'mo%s (or "t$e
&%r&ose o( besto,ing a%t$orit' UonV t$e LG@ t$ro%g$ its
c$ie( e4ec%tive to initiate t$e e4&ro&riation &rocee!ings in
co%rt in t$e e4ercise o( t$e &o,er o( eminent !omain."
#rticle 1G -%le K* o( t$e -%les an! -eg%lations
*m&lementing t$e LGC: "*( t$e LG@ (ails to ac.%ire a &rivate
&ro&ert' (or &%blic %se &%r&ose or ,el(are t$ro%g$
&%rc$ase t$e LG@ ma' e4&ro&riate sai! &ro&ert' t$ro%g$ a
resol%tion o( t$e )angg%nian a%t$oriBing its c$ie( e4ec%tive
to initiate e4&ro&riation &rocee!ings."
2$e Co%rt !isagrees. 2$e &o,er o( eminent !omain is
lo!ge! in t$e legislative branc$ o( government ,$ic$ ma'
!elegate t$e e4ercise t$ereo( to LG@s ot$er &%blic entities
an! &%blic %tilities. #n LG@ ma' t$ere(ore e4ercise t$e
&o,er to e4&ro&riate &rivate &ro&ert' onl' ,$en a%t$oriBe!
b' Congress an! s%b9ect to t$e latterHs control an!
restraints im&ose! "t$ro%g$ t$e la, con(erring t$e &o,er or
in ot$er legislations." *n t$is case )ection 18 o( -# 71G5
,$ic$ !elegates to LG@s t$e &o,er o( eminent !omain also
la's !o,n t$e &arameters (or its e4ercise. *t &rovi!es as
(ollo,s: )ec. 18. 3minent Domain. # LG@ ma' t$ro%g$ its
c$ie( e4ec%tive an! acting &%rs%ant to an or!inance
e4ercise t$e &o,er o( eminent !omain (or &%blic %se or
&%r&ose or ,el(are (or t$e bene(it o( t$e &oor an! t$e
lan!less %&on &a'ment o( 9%st com&ensation &%rs%ant to
t$e &rovisions o( t$e Constit%tion an! &ertinent la,s:
=rovi!e! $o,ever 2$at t$e &o,er o( eminent !omain ma'
not be e4ercise! %nless a vali! an! !e(inite o((er $as been
&revio%sl' ma!e to t$e o,ner an! s%c$ o((er ,as not
acce&te!: =rovi!e! (%rt$er 2$at t$e LG@ ma' imme!iatel'
ta+e &ossession o( t$e &ro&ert' %&on t$e (iling o( t$e
e4&ro&riation &rocee!ings an! %&on ma+ing a !e&osit ,it$
t$e &ro&er co%rt o( at least (i(teen &ercent ;1CY< o( t$e (air
mar+et val%e o( t$e &ro&ert' base! on t$e c%rrent ta4
!eclaration o( t$e &ro&ert' to be e4&ro&riate!: =rovi!e!
(inall' 2$at t$e amo%nt to be &ai! (or t$e e4&ro&riate!
&ro&ert' s$all be !etermine! b' t$e &ro&er co%rt base! on
GG
t$e (air mar+et val%e at t$e time o( t$e ta+ing o( t$e
&ro&ert'.
3ssential re.%isites (or t$e e4ercise t$e &o,er o( eminent
!omain: ;1< #n or!inance is enacte! b' t$e local legislative
co%ncil a%t$oriBing t$e local c$ie( e4ec%tive in be$al( o( t$e
LG@ to e4ercise t$e &o,er o( eminent !omain or &%rs%e
e4&ro&riation &rocee!ings over a &artic%lar &rivate &ro&ert'.
;/< 2$e &o,er o( eminent !omain is e4ercise! (or &%blic %se
&%r&ose or ,el(are or (or t$e bene(it o( t$e &oor an! t$e
lan!less. ;1< 2$ere is &a'ment o( 9%st com&ensation as
re.%ire! %n!er )ection 8 #rticle *** o( t$e Constit%tion an!
ot$er &ertinent la,s. ;0< # vali! an! !e(inite o((er $as been
&revio%sl' ma!e to t$e o,ner o( t$e &ro&ert' so%g$t to be
e4&ro&riate! b%t sai! o((er ,as not acce&te!.
*n t$e case at bar t$e local c$ie( e4ec%tive so%g$t to
e4ercise t$e &o,er o( eminent !omain &%rs%ant to a
resol%tion o( t$e m%nici&al co%ncil. 2$%s t$ere ,as no
com&liance ,it$ t$e (irst re.%isite t$at t$e ma'or be
a%t$oriBe! t$ro%g$ an or!inance. =.%e cites Camarines )%r
vs. C# to s$o, t$at a resol%tion ma' s%((ice to s%&&ort t$e
e4ercise o( eminent !omain b' an LG@. 2$is case $o,ever
is not in &oint beca%se t$e a&&licable la, at t$at time ,as
B= 117 t$e &revio%s LGC ,$ic$ $a! &rovi!e! t$at a mere
resol%tion ,o%l! enable an LG@ to e4ercise eminent
!omain. *n contrast -# 71G5 11 t$e &resent LGC ,$ic$ ,as
alrea!' in (orce ,$en t$e Com&laint (or e4&ro&riation ,as
(ile! e4&licitl' re.%ire! an or!inance (or t$is &%r&ose.
# m%nici&al or!inance is !i((erent (rom a resol%tion. #n
or!inance is a la, b%t a resol%tion is merel' a !eclaration
o( t$e sentiment or o&inion o( a la,ma+ing bo!' on a
s&eci(ic matter. #n or!inance &ossesses a general an!
&ermanent c$aracter b%t a resol%tion is tem&orar' in
nat%re. #!!itionall' t$e t,o are enacte! !i((erentl' S a
t$ir! rea!ing is necessar' (or an or!inance b%t not (or a
resol%tion %nless !eci!e! ot$er,ise b' a ma9orit' o( all t$e
)angg%nian members.
*( Congress inten!e! to allo, LG@s to e4ercise eminent
!omain t$ro%g$ a mere resol%tion it ,o%l! $ave sim&l'
a!o&te! t$e lang%age o( t$e &revio%s LGC. B%t Congress !i!
not. *n a clear !ivergence (rom t$e &revio%s LGC )ection 18
o( -# 71G5 categoricall' re.%ires t$at t$e local c$ie(
e4ec%tive act &%rs%ant to an or!inance. *n!ee!
"UlVegislative intent is !etermine! &rinci&all' (rom t$e
lang%age o( a stat%te. 6$ere t$e lang%age o( a stat%te is
clear an! %nambig%o%s t$e la, is a&&lie! accor!ing to its
e4&ress terms an! inter&retation ,o%l! be resorte! to onl'
,$ere a literal inter&retation ,o%l! be resorte! to onl'
,$ere a literal inter&retation ,o%l! be eit$er im&ossible or
abs%r! or ,o%l! lea! to an in9%stice." *n t$e instant case
t$ere is no reason to !e&art (rom t$is r%le since t$e la,
re.%iring an or!inance is not at all im&ossible abs%r! or
%n9%st.
Moreover t$e &o,er o( eminent !omain necessaril' involves
a !erogation o( a (%n!amental or &rivate rig$t o( t$e &eo&le.
#ccor!ingl' t$e mani(est c$ange in t$e legislative lang%age
S (rom "resol%tion" %n!er B= 117 to "or!inance" %n!er -#
71G5 S !eman!s a strict constr%ction. "No s&ecies o(
&ro&ert' is $el! b' in!ivi!%als ,it$ greater tenacit' an! is
g%ar!e! b' t$e Constit%tion an! la,s more se!%lo%sl' t$an
t$e rig$t to t$e (ree$ol! o( in$abitants. 6$en t$e legislat%re
inter(eres ,it$ t$at rig$t an! (or greater &%blic &%r&oses
a&&ro&riates t$e lan! o( an in!ivi!%al ,it$o%t $is consent
t$e &lain meaning o( t$e la, s$o%l! not be enlarge! b'
!o%bt(%l inter&retation."
=.%e relies on #rticle 1G -%le K* o( t$e *m&lementing -%les
,$ic$ re.%ires onl' a resol%tion to a%t$oriBe an LG@ to
e4ercise eminent !omain. 2$is is clearl' mis&lace! beca%se
)ection 18 o( -# 71G5 t$e la, itsel( s%rel' &revails over
sai! r%le ,$ic$ merel' see+s to im&lement it. *t is a4iomatic
t$at t$e clear letter o( t$e la, is controlling an! cannot be
amen!e! b' a mere a!ministrative r%le iss%e! (or its
im&lementation. Besi!es ,$at t$e !iscre&anc' seems to
in!icate is a mere oversig$t in t$e ,or!ing o( t$e
im&lementing r%les since #rticle 1/ -%le K* t$ereo( also
re.%ires t$at in e4ercising t$e &o,er o( eminent !omain
t$e c$ie( e4ec%tive o( t$e LG@ act &%rs%ant to an or!inance.
*n t$is r%ling t$e Co%rt !oes not !iminis$ t$e &olic'
embo!ie! in )ection / #rticle J o( t$e Constit%tion ,$ic$
&rovi!es t$at "territorial an! &olitical s%b!ivisions s$all
en9o' local a%tonom'." *t merel' %&$ol!s t$e la, as ,or!e!
in -# 71G5. 6e stress t$at an LG@ is create! b' la, an! all
its &o,ers an! rig$ts are so%rce! t$ere(rom. *t $as t$ere(ore
no &o,er to amen! or act be'on! t$e a%t$orit' given an!
t$e limitations im&ose! on it b' la,. )trictl' s&ea+ing t$e
G7
&o,er o( eminent !omain !elegate! to an LG@ is in realit'
not eminent b%t "in(erior" !omain since it m%st con(orm to
t$e limits im&ose! b' t$e !elegation an! t$%s &arta+es onl'
o( a s$are in eminent !omain. 18 *n!ee! "t$e national
legislat%re is still t$e &rinci&al o( t$e LG@s ,$ic$ cannot
!e(' its ,ill or mo!i(' or violate it."
/. 6ON t$e com&laint states a ca%se o( action. NO.
*n its Brie( (ile! be(ore -es&on!ent Co%rt &etitioner arg%es
t$at its )angg%niang Ba'an &asse! an or!inance on October
11 1880 ,$ic$ reiterate! its -esol%tion No. 81D1C )eries o(
1881 an! rati(ie! all t$e acts o( its ma'or regar!ing t$e
s%b9ect e4&ro&riation.
2$is arg%ment is bere(t o( merit. *n t$e (irst &lace &etitioner
merel' allege! t$e e4istence o( s%c$ an or!inance b%t it !i!
not &resent an' certi(ie! tr%e co&' t$ereo(. *n t$e secon!
&lace &etitioner !i! not raise t$is &oint be(ore t$is Co%rt. *n
(act it ,as mentione! b' &rivate res&on!ent an! onl' in
&assing. *n an' event t$is allegation !oes not c%re t$e
in$erent !e(ect o( &etitionerHs Com&laint (or e4&ro&riation
(ile! on )e&tember /1 1881. *t is $ornboo+ !octrine t$at in
a motion to !ismiss base! on t$e gro%n! t$at t$e com&laint
(ails to state a ca%se o( action t$e .%estion s%bmitte!
be(ore t$e co%rt (or !etermination is t$e s%((icienc' o( t$e
allegations in t$e com&laint itsel(. 6$et$er t$ose allegations
are tr%e or not is besi!e t$e &oint (or t$eir tr%t$ is
$'&ot$eticall' a!mitte! b' t$e motion. 2$e iss%e rat$er is:
a!mitting t$em to be tr%e ma' t$e co%rt ren!er a vali!
9%!gment in accor!ance ,it$ t$e &ra'er o( t$e com&laintT
2$e (act t$at t$ere is no ca%se o( action is evi!ent (rom t$e
(ace o( t$e Com&laint (or e4&ro&riation ,$ic$ ,as base! on
a mere resol%tion. 2$e absence o( an or!inance a%t$oriBing
t$e same is e.%ivalent to lac+ o( ca%se o( action.
Conse.%entl' t$e Co%rt o( #&&eals committe! no reversible
error in a((irming t$e trial co%rtHs Decision ,$ic$ !ismisse!
t$e e4&ro&riation s%it.
/. 6ON t$e &rinci&le o( res 9%!icata as a gro%n! (or !ismissal
o( case is not a&&licable ,$en &%blic interest is &rimaril'
involve!. :3).
3minent Domain Not Barre! b' -es 7%!icata. #s correctl'
(o%n! b' t$e Co%rt o( #&&eals an! t$e trial co%rt all t$e
re.%isites (or t$e a&&lication o( res 9%!icata are &resent in
t$is case. 2$ere is a &revio%s (inal 9%!gment on t$e merits in
a &rior e4&ro&riation case involving i!entical interests
s%b9ect matter an! ca%se o( action ,$ic$ $as been
ren!ere! b' a co%rt $aving 9%ris!iction over it.
Ho,ever -7 ,$ic$ (in!s a&&lication in generall' all cases
an! &rocee!ings cannot bar t$e rig$t o( t$e )tate or its
agent to e4&ro&riate &rivate &ro&ert'. 2$e ver' nat%re o(
eminent !omain as an in$erent &o,er o( t$e )tate !ictates
t$at t$e rig$t to e4ercise t$e &o,er be absol%te an!
%n(ettere! even b' a &rior 9%!gment or res 9%!icata. 2$e
sco&e o( eminent !omain is &lenar' an! li+e &olice &o,er
can "reac$ ever' (orm o( &ro&ert' ,$ic$ t$e )tate mig$t
nee! (or &%blic %se." "#ll se&arate interests o( in!ivi!%als in
&ro&ert' are $el! o( t$e government %n!er t$is tacit
agreement or im&lie! reservation. Not,it$stan!ing t$e
grant to in!ivi!%als t$e eminent !omain t$e $ig$est an!
most e4act i!ea o( &ro&ert' remains in t$e government or
in t$e aggregate bo!' o( t$e &eo&le in t$eir sovereign
ca&acit'A an! t$e' $ave t$e rig$t to res%me t$e &ossession
o( t$e &ro&ert' ,$enever t$e &%blic interest re.%ires it."
2$%s t$e )tate or its a%t$oriBe! agent cannot be (orever
barre! (rom e4ercising sai! rig$t b' reason alone o(
&revio%s nonDcom&liance ,it$ an' legal re.%irement.
6$ile t$e &rinci&le o( res 9%!icata !oes not !enigrate t$e
rig$t o( t$e )tate to e4ercise eminent !omain it !oes a&&l'
to s&eci(ic iss%es !eci!e! in a &revio%s case. For e4am&le a
(inal 9%!gment !ismissing an e4&ro&riation s%it on t$e
gro%n! t$at t$ere ,as no &rior o((er &recl%!es anot$er s%it
raising t$e same iss%eA it cannot $o,ever bar t$e )tate or
its agent (rom t$erea(ter com&l'ing ,it$ t$is re.%irement
as &rescribe! b' la, an! s%bse.%entl' e4ercising its &o,er
o( eminent !omain over t$e same &ro&ert'. B' t$e same
to+en o%r r%ling t$at &etitioner cannot e4ercise its
!elegate! &o,er o( eminent !omain t$ro%g$ a mere
resol%tion ,ill not bar it (rom reinstit%ting similar
&rocee!ings once t$e sai! legal re.%irement an! (or t$at
matter all ot$ers are &ro&erl' com&lie! ,it$.
=arent$eticall' an! b' &arit' o( reasoning t$e same is also
tr%e o( t$e &rinci&le o( "la, o( t$e case." *n -e&%blic vs. De
Mnec$t t$e Co%rt r%le! t$at t$e &o,er o( t$e )tate or its
agent to e4ercise eminent !omain is not !iminis$e! b' t$e
mere (act t$at a &rior (inal 9%!gment over t$e &ro&ert' to be
e4&ro&riate! $as become t$e la, o( t$e case as to t$e
G8
&arties. 2$e )tate or its a%t$oriBe! agent ma' still
s%bse.%entl' e4ercise its rig$t to e4&ro&riate t$e same
&ro&ert' once all legal re.%irements are com&lie! ,it$. 2o
r%le ot$er,ise ,ill not onl' im&ro&erl' !iminis$ t$e &o,er o(
eminent !omain b%t also clearl' !e(eat social 9%stice.
Cit# o! Cebu v. (pouses *eamo
Facts: 2$e Cit' o( Ceb% (ile! in Civil Case No. C3BD10G1/ a
com&laint (or eminent !omain against res&on!ents s&o%ses
#&olonio an! Blasa De!amo (or a &%blic &%r&ose i.e. (or t$e
constr%ction o( a &%blic roa! ,$ic$ s$all serve as an access?relie(
roa! o( Goror!o #ven%e to e4ten! to t$e General Ma4il%m #ven%e
an! t$e bac+ o( Magellan *nternational Hotel -oa!s in Ceb% Cit'.
2$e lots are t$e most s%itable site (or t$e &%r&ose. 2$e total area
so%g$t to be e4&ro&riate! is 1G/0 s.%are meters ,it$ an assesse!
val%e o( =178G.055. =etitioner !e&osite! ,it$ t$e =$ili&&ine
National Ban+ t$e amo%nt o( =C11CG re&resenting 1CY o( t$e (air
mar+et val%e o( t$e &ro&ert' to enable t$e &etitioner to ta+e
imme!iate &ossession o( t$e &ro&ert' &%rs%ant to )ection 18 o(
-.#. No. 71G5. 2$e De!amos (ile! a motion to !ismiss t$e
com&laint beca%se t$e &%r&ose (or ,$ic$ t$eir &ro&ert' ,as to be
e4&ro&riate! ,as not (or a &%blic &%r&ose b%t (or bene(it o( a single
&rivate entit' t$e Ceb% Hol!ings *nc. Ceb% co%l! sim&l' b%'
!irectl' (rom t$em t$e &ro&ert' at its (air mar+et val%e i( it ,ante!
to 9%st li+e ,$at it !i! ,it$ t$e neig$boring lots. Besi!es t$e &rice
o((ere! ,as ver' lo, in lig$t o( t$e consi!eration o( =/5555 &er
s.%are meter more or less ,$ic$ &etitioner &ai! to t$e
neig$boring lots. Finall' t$e De!amos allege! t$at t$e' $ave no
ot$er lan! in Ceb% Cit'. Ceb% (ile! a motion (or t$e iss%ance o( a
,rit o( &ossession &%rs%ant to )ection 18 o( -.#. No. 71G5. 2$e
motion ,as grante! b' t$e trial co%rt.
2$e &arties e4ec%te! an! s%bmitte! to t$e trial co%rt an #greement
,$erein t$e' !eclare! t$at t$e' $ave &artiall' settle! t$e case an!
in consi!eration t$ereo( t$e' agree!: 1. 2$at t$e )3COND =#-2:
$ereb' con(orms to t$e intention to UsicV t$e F*-)2 =#-2: in
e4&ro&riating t$eir &arcels o( lan! in t$e aboveDcite! case as (or
&%blic &%r&ose an! (or t$e bene(it o( t$e general &%blicA
/. 2$at t$e )3COND =#-2: agrees to &art ,it$ t$e
o,ners$i& o( t$e s%b9ect &arcels o( lan! in (avor o( t$e F*-)2 =#-2:
&rovi!e! t$e latter ,ill &a' 9%st com&ensation (or t$e same in t$e
amo%nt !etermine! b' t$e co%rt a(ter !%e notice an! $earingA
1. 2$at in t$e meantime t$e )3COND =#-2: agrees to
receive t$e amo%nt o( ON3 M*LL*ON )3K3N H@ND-3D 3*GH2: )*J
2HO@)#ND FO@- H@ND-3D =3)O) ;178G055.55< as &rovisional
&a'ment (or t$e s%b9ect &arcels o( lan! ,it$o%t &re9%!ice to t$e
(inal val%ation as ma'be !etermine! b' t$e co%rtA
0. 2$at t$e F*-)2 =#-2: in t$e lig$t o( t$e iss%ance o( t$e
6rit o( =ossession Or!er !ate! )e&tember /1 1880 iss%e! b' t$e
Honorable Co%rt agree! to ta+e &ossession over t$at &ortion o( t$e
lot so%g$t to be e4&ro&riate! ,$ere t$e $o%se o( t$e )3COND
=#-2: ,as locate! onl' a(ter (i(teen ;1C< !a's %&on t$e recei&t o(
t$e )3COND =#-2: o( t$e amo%nt o( =178G055.55A
C. 2$at t$e )3COND =#-2: %&on recei&t o( t$e a(oresai!
&rovisional amo%nt s$all t%rn over to t$e F*-)2 =#-2: t$e title o(
t$e lot an! ,it$in t$e la&se o( t$e (i(teen ;1C< !a's grace &erio! ,ill
vol%ntaril' !emolis$ t$eir $o%se an! t$e ot$er str%ct%re t$at ma'
be locate! t$ereon at t$eir o,n e4&enseA
G. 2$at t$e F*-)2 =#-2: an! t$e )3COND =#-2: 9ointl'
&etition t$e Honorable Co%rt to ren!er 9%!gment in sai! Civil Case
No. C3BD10G1/ in accor!ance ,it$ t$is #G-33M3N2A
7. 2$at t$e 9%!gment so%g$t to be ren!ere! %n!er t$is
agreement s$all be (ollo,e! b' a s%&&lemental 9%!gment (i4ing t$e
9%st com&ensation (or t$e &ro&ert' o( t$e )3COND =#-2: a(ter t$e
Commissioners a&&ointe! b' t$is Honorable Co%rt to !etermine t$e
same s$all $ave ren!ere! t$eir re&ort an! a&&rove! b' t$e co%rt.
=%rs%ant to sai! agreement t$e trial co%rt a&&ointe! t$ree
commissioners to !etermine t$e 9%st com&ensation o( t$e lots
so%g$t to be e4&ro&riate!. 2$e commissioners ,ere =alermo M.
L%go ,$o ,as nominate! b' &etitioner an! ,$o ,as !esignate! as
C$airmanA #l(re!o Cisneros ,$o ,as nominate! b' res&on!entsA
an! Herbert 3. B%ot ,$o ,as !esignate! b' t$e trial co%rt. 2$e
&arties agree! to t$eir a&&ointment. 2$erea(ter t$e commissioners
s%bmitte! t$eir re&ort ,$ic$ containe! t$eir res&ective
assessments o( an! recommen!ation as to t$e val%ation o( t$e
&ro&ert'.
On t$e basis o( t$e commissionersH re&ort an! a(ter !%e
!eliberation t$ereon t$e trial co%rt ren!ere! its !ecision or!ering
Ceb% to &a' t$e De!amos =/08GC.815.55 re&resenting t$e
com&ensation mentione! in t$e Com&laint. =etitioner (ile! a motion
(or reconsi!eration on t$e gro%n! t$at t$e commissionersH re&ort
,as inacc%rate since it incl%!e! an area ,$ic$ ,as not s%b9ect to
e4&ro&riation. More s&eci(icall' it conten!e! t$at Lot No. 1C/8
contains 781 s.%are meters b%t t$e act%al area to be e4&ro&riate!
G8
is onl' 078 s.%are meters. 2$e remaining 11C s.%are meters is t$e
s%b9ect o( a se&arate e4&ro&riation &rocee!ing in Civil Case No.
C3BD8108 t$en &en!ing be(ore Branc$ 8 o( t$e -egional 2rial Co%rt
o( Ceb% Cit'. 2$e commissioners s%bmitte! an amen!e!
assessment (or t$e 078 s.%are meters o( Lot No. 1C/8 an! (i4e! it
at =1/8/0.15 &er s.%are meter or in t$e amo%nt o(
=/58/G118.C5. 2$e assessment ,as a&&rove! as t$e 9%st
com&ensation t$ereo( b' t$e trial co%rt in its Or!er o( /7 December
188G. #ccor!ingl' t$e !is&ositive &ortion o( t$e !ecision ,as
amen!e! to re(lect t$e ne, val%ation.
=etitioner elevate! t$e case to t$e Co%rt o( #&&eals ,$ic$
!oc+ete! t$e case as C#DG.-. CK No. C8/50. =etitioner allege! t$at
t$e lo,er co%rt erre! in (i4ing t$e amo%nt o( 9%st com&ensation at
=/58/G118.C5. 2$e 9%st com&ensation s$o%l! be base! on t$e
&revailing mar+et &rice o( t$e &ro&ert' at t$e commencement o(
t$e e4&ro&riation &rocee!ings. C# #((irme! -2C.
*ss%e: 6ON 9%st com&ensation s$o%l! be !etermine! as o( t$e !ate
o( t$e (iling o( t$e com&laint. *t asserts t$at it s$o%l! be ,$ic$ in
t$is case s$o%l! be 17 )e&tember 1881 an! not at t$e time t$e
&ro&ert' ,as act%all' ta+en in 1880 &%rs%ant to t$e !ecision in
N=C vs. C#
De!amos: Co%rt o( #&&eals !i! not err in a((irming t$e
!ecision o( t$e trial co%rt beca%se ;1< t$e trial co%rt !eci!e!
t$e case on t$e basis o( t$e agreement o( t$e &arties t$at
9%st com&ensation s$all be (i4e! b' commissioners
a&&ointe! b' t$e co%rtA ;/< &etitioner !i! not inter&ose an'
serio%s ob9ection to t$e commissionersH re&ort o( 1/ #%g%st
188G (i4ing t$e 9%st com&ensation o( t$e 1G/0Ds.%are
meter lot at =/58/G118.C5A $ence it ,as esto&&e! (rom
attac+ing t$e re&ort on ,$ic$ t$e !ecision ,as base!A an!
;1< t$e !etermine! 9%st com&ensation (i4e! is even lo,er
t$an t$e act%al val%e o( t$e &ro&ert' at t$e time o( t$e
act%al ta+ing in 1880.
3minent !omain is a (%n!amental )tate &o,er t$at is
inse&arable (rom sovereignt'. *t is t$e GovernmentHs rig$t to
a&&ro&riate in t$e nat%re o( a com&%lsor' sale to t$e )tate
&rivate &ro&ert' (or &%blic %se or &%r&ose.8 Ho,ever t$e
Government m%st &a' t$e o,ner t$ereo( 9%st com&ensation
as consi!eration t$ere(or. *n t$e case at bar t$e a&&licable
la, as to t$e &oint o( rec+oning (or t$e !etermination o( 9%st
com&ensation is )ection 18 o( -.#. No. 71G5 ,$ic$
e4&ressl' &rovi!es t$at 9%st com&ensation s$all be
!etermine! as o( t$e time o( act%al ta+ing. 2$e )ection
rea!s as (ollo,s: )3C2*ON 18. 3minent Domain. X # local
government %nit ma' t$ro%g$ its c$ie( e4ec%tive an! acting
&%rs%ant to an or!inance e4ercise t$e &o,er o( eminent
!omain (or &%blic %se or &%r&ose or ,el(are (or t$e bene(it
o( t$e &oor an! t$e lan!less %&on &a'ment o( 9%st
com&ensation &%rs%ant to t$e &rovisions o( t$e Constit%tion
an! &ertinent la,s: =rovi!e! $o,ever 2$at t$e &o,er o(
eminent !omain ma' not be e4ercise! %nless a vali! an!
!e(inite o((er $as been &revio%sl' ma!e to t$e o,ner an!
s%c$ o((er ,as not acce&te!: =rovi!e! (%rt$er 2$at t$e
local government %nit ma' imme!iatel' ta+e &ossession o(
t$e &ro&ert' %&on t$e (iling o( t$e e4&ro&riation &rocee!ings
an! %&on ma+ing a !e&osit ,it$ t$e &ro&er co%rt o( at least
(i(teen &ercent ;1CY< o( t$e (air mar+et val%e o( t$e
&ro&ert' base! on t$e c%rrent ta4 !eclaration o( t$e
&ro&ert' to be e4&ro&riate!: =rovi!e! (inall' 2$at t$e
amo%nt to be &ai! (or t$e e4&ro&riate! &ro&ert' s$all be
!etermine! b' t$e &ro&er co%rt base! on t$e (air mar+et
val%e at t$e time o( t$e ta+ing o( t$e &ro&ert'.
N=C -%ling misrea!O 6e !i! not categoricall' r%le in t$at
case t$at 9%st com&ensation s$o%l! be !etermine! as o( t$e
(iling o( t$e com&laint. 6e e4&licitl' state! t$erein t$at
alt$o%g$ t$e general r%le in !etermining 9%st com&ensation
in eminent !omain is t$e val%e o( t$e &ro&ert' as o( t$e
!ate o( t$e (iling o( t$e com&laint t$e r%le "a!mits o( an
e4ce&tion: ,$ere t$is Co%rt (i4e! t$e val%e o( t$e &ro&ert'
as o( t$e !ate it ,as ta+en an! not at t$e !ate o( t$e
commencement o( t$e e4&ro&riation &rocee!ings." #lso t$e
trial co%rt (ollo,e! t$e t$en governing &roce!%ral la, on t$e
matter ,$ic$ ,as )ection C o( -%le G7 o( t$e -%les o( Co%rt
,$ic$ &rovi!e! as (ollo,s: )3C. C. #scertainment o(
com&ensation. X @&on t$e entr' o( t$e or!er o(
con!emnation t$e co%rt s$all a&&oint not more t$an t$ree
;1< com&etent an! !isintereste! &ersons as commissioners
to ascertain an! re&ort to t$e co%rt t$e 9%st com&ensation
(or t$e &ro&ert' so%g$t to be ta+en. 2$e or!er o(
a&&ointment s$all !esignate t$e time an! &lace o( t$e (irst
session o( t$e $earing to be $el! b' t$e commissioners an!
s&eci(' t$e time ,it$in ,$ic$ t$eir re&ort is to be (ile! ,it$
t$e co%rt.
75
More t$an an't$ing else t$e &arties b' a solemn !oc%ment
(reel' an! vol%ntaril' agree! %&on b' t$em agree! to be
bo%n! b' t$e re&ort o( t$e commission an! a&&rove! b' t$e
trial co%rt. 2$e agreement is a contract bet,een t$e &arties.
*t $as t$e (orce o( la, bet,een t$em an! s$o%l! be
com&lie! ,it$ in goo! (ait$. #rticle 11C8 an! 111C o( t$e
Civil Co!e e4&licitl' &rovi!es: #rt. 11C8. Obligations arising
(rom contracts $ave t$e (orce o( la, bet,een t$e
contracting &arties an! s$o%l! be com&lie! ,it$ in goo!
(ait$. #rt. 111C. Contracts are &er(ecte! b' mere consent
an! (rom t$at moment t$e &arties are bo%n! not onl' to t$e
(%l(illment o( ,$at $as been e4&ressl' sti&%late! b%t also to
all t$e conse.%ences ,$ic$ accor!ing to t$eir nat%re ma'
be in +ee&ing ,it$ goo! (ait$ %sage an! la,.
F%rt$ermore !%ring t$e $earing on // November 188G
&etitioner !i! not inter&ose a serio%s ob9ection. *t is
t$ere(ore too late (or &etitioner to .%estion t$e val%ation
no, ,it$o%t violating t$e &rinci&le o( e.%itable esto&&el.
3sto&&el in &ais arises ,$en one b' $is acts
re&resentations or a!missions or b' $is o,n silence ,$en
$e o%g$t to s&ea+ o%t intentionall' or t$ro%g$ c%l&able
negligence in!%ces anot$er to believe certain (acts to e4ist
an! s%c$ ot$er rig$t(%ll' relies an! acts on s%c$ belie( so
t$at $e ,ill be &re9%!ice! i( t$e (ormer is &ermitte! to !en'
t$e e4istence o( s%c$ (acts. -ecor!s s$o, t$at &etitioner
consente! to con(orm ,it$ t$e val%ation recommen!e! b'
t$e commissioners. *t cannot !etract (rom its agreement
no, an! assail correctness o( t$e commissionersH
assessment.
Finall' ,$ile )ection 0 -%le G7 o( t$e -%les o( Co%rt
&rovi!es t$at 9%st com&ensation s$all be !etermine! at t$e
time o( t$e (iling o( t$e com&laint (or e4&ro&riation s%c$ la,
cannot &revail over -.#. 71G5 ,$ic$ is a s%bstantive la,.
9agono# Mar:et $enors Ass?n v. Municipalit# o! 9agono#
Facts: On October 1 188G t$e )angg%niang Ba'an o( Hagono'
B%lacan enacte! an or!inance Ma%t%san Blg. /8 ,$ic$ increase!
t$e stall rentals o( t$e mar+et ven!ors in Hagono'. #rticle 1
&rovi!e! t$at it s$all ta+e e((ect %&on a&&roval. 2$e s%b9ect
or!inance ,as &oste! (rom November 0D/C 188G. *n t$e last ,ee+
o( November 1887 t$e &etitioner>s members ,ere &ersonall'
given co&ies o( t$e a&&rove! Or!inance an! ,ere in(orme! t$at it
s$all be en(orce! in 7an%ar' 1888. On December 8 1887 t$e
&etitioner>s =resi!ent (ile! an a&&eal ,it$ t$e )ecretar' o( 7%stice
assailing t$e constit%tionalit' o( t$e ta4 or!inance. =etitioner
claime! it ,as %na,are o( t$e &osting o( t$e or!inance.
-es&on!ent o&&ose! t$e a&&eal. *t conten!e! t$at t$e or!inance
too+ e((ect on October G 188G an! t$at t$e or!inance as
a&&rove! ,as &oste! as re.%ire! b' la,. Hence it ,as &ointe!
o%t t$at &etitioner>s a&&eal ma!e over a 'ear later ,as alrea!'
timeDbarre!.
2$e )ecretar' o( 7%stice !ismisse! t$e a&&eal on t$e gro%n! t$at it
,as (ile! o%t o( time i.e. be'on! 15 !a's (rom t$e e((ectivit' o(
t$e Or!inance on October 1 188G as &rescribe! %n!er )ection 187
o( t$e 1881 LGC. Citing t$e case o( 2aRa!a vs. 2%vera t$e
)ecretar' o( 7%stice $el! t$at t$e !ate o( e((ectivit' o( t$e s%b9ect
or!inance retroacte! to t$e !ate o( its a&&roval in October 188G
a(ter t$e re.%ire! &%blication or &osting $as been com&lie! ,it$
&%rs%ant to )ection 1 o( sai! or!inance. #(ter its motion (or
reconsi!eration ,as !enie! &etitioner a&&eale! to t$e Co%rt o(
#&&eals. =etitioner !i! not assail t$e (in!ing o( t$e )ecretar' o(
7%stice t$at t$eir a&&eal ,as (ile! be'on! t$e reglementar' &erio!.
*nstea! it %rge! t$at t$e )ecretar' o( 7%stice s$o%l! $ave
overloo+e! t$is Emere tec$nicalit'F an! r%le! on its &etition on t$e
merits. @n(ort%natel' its &etition (or revie, ,as !ismisse! b' t$e
Co%rt o( #&&eals (or being (ormall' !e(icient as it ,as not
accom&anie! b' certi(ie! tr%e co&ies o( t$e assaile! -esol%tions o(
t$e )ecretar' o( 7%stice.
@n!a%nte! t$e &etitioner move! (or reconsi!eration b%t it ,as
!enie!.
*ss%es: 1. 6ON t$e C# ,as correct in !ismissing t$e &etition (or
revie, (or &etitioner>s (ail%re to attac$ certi(ie! tr%e co&ies o( t$e
assaile! -esol%tions o( t$e )ecretar' o( 7%stice. :3).
*n its Motion (or -econsi!eration be(ore t$e Co%rt o(
#&&eals t$e &etitioner satis(actoril' e4&laine! t$e
circ%mstances relative to its (ail%re to attac$ to its a&&eal
certi(ie! tr%e co&ies o( t$e assaile! -esol%tions o( t$e
)ecretar' o( 7%stice t$%s: !%ring t$e &re&aration o( t$e
&etition on October /1 1888 it ,as raining ver' $ar! !%e to
;t<'&$oon ELoleng.F 6$en t$e &etition ,as com&lete! co&'
,as serve! on t$e De&artment o( 7%stice at abo%t ;sic< &ast
0:55 &.m. o( October /1 1888 ,it$ ;t$e< instr%ction to $ave
71
t$e -esol%tions o( t$e De&artment o( 7%stice be stam&e! as
Ecerti(ie! tr%e co&ies. Ho,ever !%e to ba! ,eat$er t$e
&erson in c$arge ;at t$e De&artment o( 7%stice< ,as no
longer available to certi(' to ;sic< t$e -esol%tions. E2$e
(ollo,ing !a' October // 1888 ,as !eclare! a nonD
,or+ing $oli!a' beca%se o( ;t<'&$oon ELoleng.F 2$%s
&etitioner ,as again %nable to $ave t$e -esol%tions o( t$e
De&artment o( 7%stice stam&e! Ecerti(ie! tr%e co&ies.F *n
t$e morning o( October /1 1888 !%e to time constraint;s<
$erein co%nsel serve! a co&' b' &ersonal service on
;r<es&on!ent>s la,'er at ;sic< Malolos B%lacan !es&ite t$e
(loo!e! roa!s an! $eav' rains. Ho,ever as t$e $erein
co%nsel ,ent bac+ to Manila ;o((icial b%siness in<
government o((ices ,ere s%s&en!e! in t$e a(ternoon an!
t$e &ersonnel o( t$e De&artment o( 7%stice tas+e! ,it$
iss%ing or stam&ing Ecerti(ie! tr%e co&iesF o( t$eir
-esol%tions ,ere no longer available. E2o avoi! being timeD
barre! in t$e (iling o( t$e ;&<etition t$e same ,as (ile! ,it$
t$e Co%rt o( #&&eals Eas is.F
C# erre! in !ismissing &etitioner>s a&&eal on t$e gro%n!
t$at it ,as (ormall' !e(icient. *t is clear (rom t$e recor!s
t$at t$e &etitioner e4erte! !%e !iligence to get t$e co&ies o(
its a&&eale! -esol%tions certi(ie! b' t$e De&artment o(
7%stice b%t (aile! to !o so on acco%nt o( t'&$oon ELoleng.F
@n!er t$e circ%mstances res&on!ent a&&ellate co%rt s$o%l!
$ave tem&ere! its strict a&&lication o( &roce!%ral r%les in
vie, o( t$e (ort%ito%s event consi!ering t$at litigation is not
a game o( tec$nicalities
/. 6ON t$e a&&eal ,as timeDbarre!. :3).
2$e a&&licable la, is )ection 187 o( t$e 1881 LGC
,$ic$ &rovi!es: E)3C. 187. =roce!%re (or #&&roval
an! 3((ectivit' o( 2a4 Or!inances an! -even%e
Meas%resA Man!ator' =%blic Hearings. D 2$e
&roce!%re (or t$e a&&roval o( local ta4 or!inances
an! reven%e meas%res s$all be in accor!ance ,it$
t$e &rovisions o( t$is Co!e: =rovi!e! 2$at &%blic
$earings s$all be con!%cte! (or t$e &%r&ose &rior to
t$e enactment t$ereo(: =rovi!e! (%rt$er 2$at an'
.%estion on t$e constit%tionalit' or legalit' o( ta4
or!inances or reven%e meas%res ma' be raise! on
a&&eal ,it$in t$irt' ;15< !a's (rom t$e e((ectivit'
t$ereo( to t$e )ecretar' o( 7%stice ,$o s$all ren!er a
!ecision ,it$in si4t' ;G5< !a's (rom t$e recei&t o(
t$e a&&eal: =rovi!e! $o,ever 2$at s%c$ a&&eal
s$all not $ave t$e e((ect o( s%s&en!ing t$e
e((ectivit' o( t$e or!inance an! accr%al an!
&a'ment o( t$e ta4 (ee or c$arge levie! t$erein:
=rovi!e! (inall' 2$at ,it$in t$irt' ;15< !a's a(ter
recei&t o( t$e !ecision or t$e la&se o( t$e si4t'D!a'
&erio! ,it$o%t t$e )ecretar' o( 7%stice acting %&on
t$e a&&eal t$e aggrieve! &art' ma' (ile a&&ro&riate
&rocee!ings.
2$e a(orecite! la, re.%ires t$at an a&&eal o( a ta4
or!inance or reven%e meas%re s$o%l! be ma!e to
t$e )ecretar' o( 7%stice ,it$in t$irt' ;15< !a's (rom
e((ectivit' o( t$e or!inance an! even !%ring its
&en!enc' t$e e((ectivit' o( t$e assaile! or!inance
s$all not be s%s&en!e!. *n t$e case at bar
M%nici&al Or!inance No. /8 too+ e((ect in October
188G. =etitioner (ile! its a&&eal onl' in December
1887 more t$an a 'ear a(ter t$e e((ectivit' o( t$e
or!inance in 188G. Clearl' t$e )ecretar' o( 7%stice
correctl' !ismisse! it (or being timeDbarre!. #t t$is
&oint it is a&ro&os to state t$at t$e time(rame (i4e!
b' la, (or &arties to avail o( t$eir legal reme!ies
be(ore com&etent co%rts is not a Emere tec$nicalit'F
t$at can be easil' br%s$e! asi!e. 2$e &erio!s
state! in )ection 187 o( t$e LGC are man!ator'.
Or!inance No. /8 is a reven%e meas%re a!o&te! b'
t$e m%nici&alit' o( Hagono' to (i4 an! collect &%blic
mar+et stall rentals. Being its li(ebloo! collection o(
reven%es b' t$e government is o( &aramo%nt
im&ortance. 2$e (%n!s (or t$e o&eration o( its
agencies an! &rovision o( basic services to its
in$abitants are largel' !erive! (rom its reven%es
an! collections. 2$%s it is essential t$at t$e vali!it'
o( reven%e meas%res is not le(t %ncertain (or a
consi!erable lengt$ o( time. Hence t$e la,
&rovi!e! a time limit (or an aggrieve! &art' to assail
t$e legalit' o( reven%e meas%res an! ta4
or!inances.
/. 6ON t$e &erio! to a&&eal s$o%l! be co%nte! not (rom t$e
time t$e or!inance too+ e((ect in 188G b%t (rom t$e time its
7/
members ,ere &ersonall' given co&ies o( t$e a&&rove!
or!inance in November 1887. NO
=etitioner insists t$at it ,as %na,are o( t$e a&&roval
an! e((ectivit' o( t$e s%b9ect or!inance in 188G on
t,o ;/< gro%n!s: (irst no &%blic $earing ,as
con!%cte! &rior to t$e &assage o( t$e or!inance
an! secon! t$e a&&rove! or!inance ,as not
&oste!.
=etitioner>s bol! assertion t$at t$ere ,as no &%blic
$earing con!%cte! &rior to t$e &assage o( Ma%t%san
Blg. /8 is belie! b' its o,n evi!ence. *n &etitioner>s
t,o ;/< comm%nications ,it$ t$e )ecretar' o(
7%stice it en%merate! t$e vario%s ob9ections raise!
b' its members be(ore t$e &assage o( t$e or!inance
in several meetings calle! b' t$e )angg%nian (or
t$e &%r&ose. 2$ese s$o, be'on! !o%bt t$at
&etitioner ,as a,are o( t$e &ro&ose! increase an!
in (act &artici&ate! in t$e &%blic $earings t$ere(or.
2$e res&on!ent m%nici&alit' li+e,ise s%bmitte! t$e
Min%tes an! -e&ort o( t$e &%blic $earings
con!%cte! b' t$e )angg%niang Ba'an>s Committee
on #&&ro&riations an! Mar+et on Febr%ar' G 7%l' 1C
an! #%g%st 18 all in 188G (or t$e &ro&ose!
increase in t$e stall rentals.
=etitioner cannot gri&e t$at t$ere ,as &racticall' no
&%blic $earing con!%cte! as its ob9ections to t$e
&ro&ose! meas%re ,ere not consi!ere! b' t$e
)angg%niang Ba'an. 2o be s%re &%blic $earings are
con!%cte! b' legislative bo!ies to allo, intereste!
&arties to ventilate t$eir vie,s on a &ro&ose! la, or
or!inance. 2$ese vie,s $o,ever are not bin!ing
on t$e legislative bo!' an! it is not com&elle! b'
la, to a!o&t t$e same. )angg%nian members are
electe! b' t$e &eo&le to ma+e la,s t$at ,ill
&romote t$e general interest o( t$eir constit%ents.
2$e' are man!ate! to %se t$eir !iscretion an! best
9%!gment in serving t$e &eo&le. =arties ,$o
&artici&ate in &%blic $earings to give t$eir o&inions
on a &ro&ose! or!inance s$o%l! not e4&ect t$at
t$eir vie,s ,o%l! be &atroniBe! b' t$eir la,ma+ers.
On t$e iss%e o( &%blication or &osting )ection 188
o( t$e LGC &rovi!es: E)ection 188. =%blication o(
2a4 Or!inance an! -even%e Meas%res. 6it$in ten
;15< !a's a(ter t$eir a&&roval certi(ie! tr%e co&ies
o( all &rovincial cit' an! m%nici&al ta4 or!inances
or reven%e meas%res s$all be &%blis$e! in (%ll (or
t$ree ;1< consec%tive !a's in a ne,s&a&er o( local
circ%lationA =rovi!e! $o,ever 2$at in &rovinces
cities an! m%nici&alities ,$ere t$ere are no
ne,s&a&ers o( local circ%lation t$e same ma' be
&oste! in at least t,o ;/< cons&ic%o%s an! &%blicl'
accessible &laces.F
)angg%niang Ba'an o( t$e M%nici&alit' o( Hagono'
B%lacan &resente! evi!ence ,$ic$ clearl' s$o,s
t$at t$e &roce!%re (or t$e enactment o( t$e assaile!
or!inance ,as com&lie! ,it$. M%nici&al Or!inance
No. /8 ,as enacte! b' t$e )angg%niang Ba'an o(
Hagono' on October 1 188G. 2$en #cting M%nici&al
Ma'or Maria Garcia )antos a&&rove! t$e Or!inance
on October 7 188G. #(ter its a&&roval co&ies o( t$e
Or!inance ,ere given to t$e M%nici&al 2reas%rer on
t$e same !a'. On November 8 188G t$e
Or!inance ,as a&&rove! b' t$e )angg%niang
=anlala,igan. 2$e Or!inance ,as &oste! !%ring t$e
&erio! (rom November 0 D /C 188G in t$ree ;1<
&%blic &laces viB: in (ront o( t$e m%nici&al b%il!ing
at t$e b%lletin boar! o( t$e )ta. #na =aris$ C$%rc$
an! on t$e (ront !oor o( t$e O((ice o( t$e Mar+et
Master in t$e &%blic mar+et. =osting ,as vali!l'
ma!e in lie% o( &%blication as t$ere ,as no
ne,s&a&er o( local circ%lation in t$e m%nici&alit' o(
Hagono'. 2$is (act ,as +no,n to an! a!mitte! b'
&etitioner. 2$%s &etitioner>s ambig%o%s an!
%ns%&&orte! claim t$at it ,as onl' Esometime in
November 1887F t$at t$e =rovincial Boar! a&&rove!
M%nici&al Or!inance No. /8 an! so t$e &osting co%l!
not $ave been ma!e in November 188G ,as
s%((icientl' !is&rove! b' t$e &ositive evi!ence o(
res&on!ent m%nici&alit'. Given t$e (oregoing
circ%mstances &etitioner cannot vali!l' claim lac+
o( +no,le!ge o( t$e a&&rove! or!inance. 2$e (iling
o( its a&&eal a 'ear a(ter t$e e((ectivit' o( t$e
s%b9ect or!inance is (atal to its ca%se.
71
QQ3ven on t$e s%bstantive &oints raise! t$e &etition m%st (ail.
)ection Gc.50 o( t$e 1881 M%nici&al -even%e Co!e an! )ection 181
o( t$e LGC limiting t$e &ercentage o( increase t$at can be im&ose!
a&&l' to ta4 rates not rentals. Neit$er can it be sai! t$at t$e rates
,ere not %ni(orml' im&ose! or t$at t$e &%blic mar+ets incl%!e! in
t$e Or!inance ,ere %nreasonabl' !etermine! or classi(ie!. 2o be
s%re t$e Or!inance covere! t$e t$ree ;1< concrete &%blic mar+ets:
t$e t,oDstore' Bagong =aleng+e t$e b%rnt b%t reconstr%cte!
L%mang =aleng+e an! t$e more recent L%mang =aleng+e ,it$ ,et
mar+et. Ho,ever t$e =aleng+eng Bagong M%nisi&'o or Gabal!on
,as e4cl%!e! (rom t$e increase in rentals as it is onl' a ma+es$i(t
!ila&i!ate! &lace ,it$ no !oors or &rotection (or sec%rit' inten!e!
(or transient &e!!lers ,$o %se! to sell t$eir goo!s along t$e
si!e,al+.
Republic v. CA
Facts: =etitioner instit%te! e4&ro&riation &rocee!ings covering
contig%o%s lan! sit%ate! along Mac#rt$%r Hig$,a' Malolos
B%lacan to be %tiliBe! (or t$e contin%e! broa!cast o&eration an!
%se o( ra!io transmitter (acilities (or t$e EKoice o( t$e =$ili&&inesF
&ro9ect. =etitioner t$ro%g$ t$e =$ili&&ine *n(ormation #genc' too+
over t$e &remises a(ter t$e &revio%s lessee t$e EKoice o(
#mericaF $a! cease! its o&erations t$ereat. 2$e national
government (aile! to &a' to $erein res&on!ents t$e com&ensation
&%rs%ant to t$e (oregoing !ecision s%c$ t$at a little over (ive 'ears
later res&on!ents (ile! a mani(estation ,it$ a motion see+ing
&a'ment (or t$e e4&ro&riate! &ro&ert'. *n t$e meantime =resi!ent
3stra!a iss%e! =roclamation No. // trans(erring /5 $ectares o( t$e
e4&ro&riate! &ro&ert' to t$e B%lacan )tate @niversit' (or t$e
e4&ansion o( its (acilities an! anot$er C $ectares to be %se!
e4cl%sivel' (or t$e &ro&agation o( t$e =$ili&&ine carabao. 2$e
remaining &ortion ,as retaine! b' t$e =*#. 2$e )antos $eirs
remaine! %n&ai! an! no action ,as ta+en on t$eir case %ntil
&etitioner (ile! its mani(estation an! motion to &ermit t$e !e&osit
in co%rt o( t$e amo%nt o( =0GG0555.55 b' ,a' o( 9%st
com&ensation (or t$e e4&ro&riate! &ro&ert' o( t$e late L%is )antos
s%b9ect to s%c$ (inal com&%tation as mig$t be a&&rove! b' t$e
co%rt. 2$is time t$e )antos $eirs o&&osing t$e mani(estation an!
motion s%bmitte! a co%nterDmotion to a!9%st t$e com&ensation
(rom =G.55 &er s.%are meter &revio%sl' (i4e! in t$e 1878 !ecision
to its c%rrent Bonal val%ation &egge! at =C555.55 &er s.%are
meter or in t$e alternative to ca%se t$e ret%rn to t$em o( t$e
e4&ro&riate! &ro&ert'.
#ssailing t$e (in!ing o( &rescri&tion b' t$e trial co%rt &etitioner
$ere &osite! t$at a motion ,$ic$ res&on!ents $a! (ile! on 17
Febr%ar' 1880 (ollo,e! %& b' ot$er motions s%bse.%ent t$ereto
,as ma!e ,it$in t$e reglementar' &erio! t$at t$ereb' interr%&te!
t$e CD'ear &rescri&tive &erio! ,it$in ,$ic$ to en(orce t$e 1878
9%!gment. F%rt$ermore &etitioner claime! t$e recei&t b'
res&on!ents o( &artial com&ensation in t$e s%m o( =7/G81.CC on
/1 7%l' 1880 constit%te! &artial com&liance on t$e &art o(
&etitioners an! e((ectivel' esto&&e! res&on!ents (rom invo+ing
&rescri&tion e4&resse! in )ection G -%le 18 o( t$e -%les o( Co%rt.
*n o&&osing t$e &etition res&on!ents a!vance! t$e vie, t$at
&%rs%ant to )ection G -%le 18 o( t$e -%les o( Co%rt t$e (ail%re o(
&etitioner to e4ec%te t$e 9%!gment !ate! /G Febr%ar' 1878 ,it$in
(ive 'ears a(ter it $a! become (inal an! e4ec%tor' ren!ere! it
%nen(orceable b' mere motion. 2$e motion (or &a'ment !ate! 58
Ma' 1880 as ,ell as t$e s%bse.%ent !isb%rsement to t$em o( t$e
s%m o( =7/G81.CC b' t$e &rovincial treas%rer o( B%lacan co%l! not
be consi!ere! as $aving interr%&te! t$e (iveD'ear &erio! since a
motion to be consi!ere! ot$er,ise s$o%l! instea! be ma!e b' t$e
&revailing &art' in t$is case b' &etitioner. -es&on!ents maintaine!
t$at t$e =7/G81.CC &ai! to t$em b' t$e &rovincial treas%rer o(
B%lacan &%rs%ant to t$e 1880 or!er o( t$e trial co%rt ,as &art o(
t$e initial !e&osit ma!e b' &etitioner ,$en it (irst entere!
&ossession o( t$e &ro&ert' in 18G8 an! s$o%l! not be so regar!e!
as a &artial &a'ment. -es&on!ents (%rt$er .%estione! t$e rig$t o(
=*# to trans(er o,ners$i& o( a &ortion o( t$e &ro&ert' to t$e
B%lacan )tate @niversit' even ,$ile t$e 9%st com&ensation !%e t$e
$eirs $a! 'et to be (inall' settle!.
*ss%e: 6ON t$e e4&ro&riate! &ro&ert' ma' be ret%rne!. NO.
2$e rig$t o( eminent !omain is %s%all' %n!erstoo!
to be an %ltimate rig$t o( t$e sovereign &o,er to
a&&ro&riate an' &ro&ert' ,it$in its territorial
sovereignt' (or a &%blic &%r&ose. F%n!amental to
t$e in!e&en!ent e4istence o( a )tate it re.%ires no
recognition b' t$e Constit%tion ,$ose &rovisions
are ta+en as being merel' con(irmator' o( its
&resence an! as being reg%lator' at most in t$e
!%e e4ercise o( t$e &o,er. *n t$e $an!s o( t$e
legislat%re t$e &o,er is in$erent its sco&e
70
matc$ing t$at o( ta4ation even t$at o( &olice &o,er
itsel( in man' res&ects. *t reac$es to ever' (orm o(
&ro&ert' t$e )tate nee!s (or &%blic %se an! as an
ol! case so &%ts it all se&arate interests o(
in!ivi!%als in &ro&ert' are $el! %n!er a tacit
agreement or im&lie! reservation vesting %&on t$e
sovereign t$e rig$t to res%me t$e &ossession o( t$e
&ro&ert' ,$enever t$e &%blic interest so re.%ires it.
2$e %bi.%ito%s c$aracter o( eminent !omain is
mani(est in t$e nat%re o( t$e e4&ro&riation
&rocee!ings. 34&ro&riation &rocee!ings are not
a!versarial in t$e conventional sense (or t$e
con!emning a%t$orit' is not re.%ire! to assert an'
con(licting interest in t$e &ro&ert'. 2$%s b' (iling
t$e action t$e con!emnor in e((ect merel' serves
notice t$at it is ta+ing title an! &ossession o( t$e
&ro&ert' an! t$e !e(en!ant asserts title or interest
in t$e &ro&ert' not to &rove a rig$t to &ossession
b%t to &rove a rig$t to com&ensation (or t$e ta+ing.
Obvio%sl' $o,ever t$e &o,er is not ,it$o%t its
limits: (irst t$e ta+ing m%st be (or &%blic %se an!
secon! t$at 9%st com&ensation m%st be given to t$e
&rivate o,ner o( t$e &ro&ert'. 2$ese t,in
&roscri&tions $ave t$eir origin in t$e recognition o(
t$e necessit' (or ac$ieving balance bet,een t$e
)tate interests on t$e one $an! an! &rivate rig$ts
%&on t$e ot$er $an! b' e((ectivel' restraining t$e
(ormer an! a((or!ing &rotection to t$e latter. *n
!etermining E&%blic %seF t,o a&&roac$es are
%tiliBe! D t$e (irst is &%blic em&lo'ment or t$e act%al
%se b' t$e &%blic an! t$e secon! is &%blic
a!vantage or bene(it. *t is also %se(%l to vie, t$e
matter as being s%b9ect to constant gro,t$ ,$ic$ is
to sa' t$at as societ' a!vances its !eman!s %&on
t$e in!ivi!%al so increases an! eac$ !eman! is a
ne, %se to ,$ic$ t$e reso%rces o( t$e in!ivi!%al
ma' be !evote!.
2$e e4&ro&riate! &ro&ert' $as been s$o,n to be (or
t$e contin%e! %tiliBation b' t$e =*# a signi(icant
&ortion t$ereo( being ce!e! (or t$e e4&ansion o( t$e
(acilities o( t$e B%lacan )tate @niversit' an! (or t$e
&ro&agation o( t$e =$ili&&ine carabao t$emselves in
line ,it$ t$e re.%irements o( &%blic &%r&ose.
-es&on!ents .%estion t$e &%blic nat%re o( t$e
%tiliBation b' &etitioner o( t$e con!emne! &ro&ert'
&ointing o%t t$at its &resent %se !i((ers (rom t$e
&%r&ose originall' contem&late! in t$e 18G8
e4&ro&riation &rocee!ings. 2$e arg%ment is o( no
moment. 2$e &ro&ert' $as ass%me! a &%blic
c$aracter %&on its e4&ro&riation. )%rel' &etitioner
as t$e con!emnor an! as t$e o,ner o( t$e &ro&ert'
is ,ell ,it$in its rig$ts to alter an! !eci!e t$e %se o(
t$at &ro&ert' t$e onl' limitation being t$at it be (or
&%blic %se ,$ic$ !eci!e!l' it is.
*n insisting on t$e ret%rn o( t$e e4&ro&riate!
&ro&ert' res&on!ents ,o%l! e4$ort on t$e
&rono%ncement in =rovincial Government o(
)orsogon vs. K!a. !e Killaro'a ,$ere t$e %n&ai!
lan!o,ners ,ere allo,e! t$e alternative reme!' o(
recover' o( t$e &ro&ert' t$ere in .%estion. *t mig$t
be borne in min! t$at t$e case involve! t$e
m%nici&al government o( )orsogon to ,$ic$ t$e
&o,er o( eminent !omain is not in$erent b%t
merel' !elegate! an! o( limite! a&&lication. 2$e
grant o( t$e &o,er o( eminent !omain to local
governments %n!er -e&%blic #ct No. 71G5 cannot
be %n!erstoo! as being t$e &ervasive an! allD
encom&assing &o,er veste! in t$e legislative
branc$ o( government. For local governments to be
able to ,iel! t$e &o,er it m%st b' enabling la, be
!elegate! to it b' t$e national legislat%re b%t even
t$en t$is !elegate! &o,er o( eminent !omain is
not strictl' s&ea+ing a &o,er o( eminent b%t onl'
o( in(erior !omain or onl' as broa! or con(ine! as
t$e real a%t$orit' ,o%l! ,ant it to be.
2$e e4ercise o( s%c$ rig$ts veste! to it as t$e
con!emnee in!ee! $as amo%nte! to at least a
&artial com&liance or satis(action o( t$e 1878
9%!gment t$ereb' &reem&ting an' claim o( bar b'
&rescri&tion on gro%n!s o( nonDe4ec%tion. *n arg%ing
(or t$e ret%rn o( t$eir &ro&ert' on t$e basis o( nonD
&a'ment res&on!ents ignore t$e (act t$at t$e rig$t
o( t$e e4&ro&riator' a%t$orit' is (ar (rom t$at o( an
%n&ai! seller in or!inar' sales to ,$ic$ t$e reme!'
7C
o( rescission mig$t &er$a&s a&&l'. #n in rem
&rocee!ing con!emnation acts %&on t$e &ro&ert'.
#(ter con!emnation t$e &aramo%nt title is in t$e
&%blic %n!er a ne, an! in!e&en!ent titleA t$%s b'
giving notice to all claimants to a !is&%te! title
con!emnation &rocee!ings &rovi!e a 9%!icial
&rocess (or sec%ring better title against all t$e ,orl!
t$an ma' be obtaine! b' vol%ntar' conve'ance.
=rivate res&on!ents alt$o%g$ not entitle! to t$e
ret%rn o( t$e e4&ro&riate! &ro&ert' !eserve to be
&ai! &rom&tl' on t$e 'et %n&ai! a,ar! o( 9%st
com&ensation alrea!' (i4e! b' (inal 9%!gment o( t$e
B%lacan -2C on /G Febr%ar' 1878 at =G.55 &er
s.%are meter ,it$ legal interest t$ereon at 1/Y &er
ann%m com&%te! (rom t$e !ate o( "ta+ing" o( t$e
&ro&ert' i.e. 18 )e&tember 18G8 ;instit%tion o(
con!emnation &rocee!ings< %ntil t$e !%e amo%nt
s$all $ave been (%ll' &ai!.
%stanislao v. Costales
Facts: 2$e )angg%niang =angl%nso! o( Zamboanga Cit' &asse!
Or!inance No. 00 ,$ic$ im&oses a =5.51 ta4 &er liter o( so(t!rin+s
&ro!%ce! man%(act%re! an!?or bottle! ,it$in t$e cit'. 2$e
Minister o( Finance sent a letter to t$e )angg%nian s%s&en!ing t$e
e((ectivit' o( t$e Or!inance on t$e gro%n! t$at it contravenes )ec
18 ;a< o( t$e Local 2a4 Co!e. Zamboanga a&&eale! t$e s%s&ension
in t$e -2C.
-2C: t$e ta4 im&ose! b' t$e Or!inance is not among t$ose t$at t$e
)angg%nian ma' im&ose %n!er t$e Local 2a4 Co!e b%t %&$el! its
vali!it' sa'ing t$at t$e Finance Minister !i! not act on it ,?in 1/5
!a's (rom recei&t o( t$e &etition.
Finance )ecretar' a&&eale!.
*ss%e: 6ON Or!inance 00 is vali!. NO.
# cit' li+e Zamboanga ma' im&ose in lie% o( t$e
gra!%ate! (i4e! ta4 &rescribe! %n!er )ection 18 o(
t$e Local 2a4 Co!e a &ercentage ta4 on t$e gross
sales (or t$e &rece!ing calen!ar 'ear o( nonD
essential commo!ities at t$e rate o( not e4cee!ing
t,o &er cent an! on t$e gross sales o( essential
commo!ities at t$e rate o( not e4cee!ing one &er
cent.
2$e Or!inance is %ltra vires as it is not ,it$in t$e
a%t$orit' o( t$e Cit' to im&ose sai! ta4. 2$e
a%t$orit' o( t$e Cit' is limite! to t$e im&osition o( a
&ercentage ta4 on t$e gross sales or recei&ts o( sai!
&ro!%ct ,$ic$ being nonDessential s$all be at t$e
rate o( not e4cee!ing /Y o( t$e gross sales or
recei&ts o( t$e so(t!rin+s (or t$e &rece!ing calen!ar
'ear. 2$e ta4 being im&ose! %n!er sai! Or!inance is
base! on t$e o%t&%t or &ro!%ction an! not on t$e
gross sales or recei&ts as a%t$oriBe! %n!er t$e Local
2a4 Co!e.
3ven i( t$e )ecretar' o( Finance (aile! to revie, or
act on t$e Or!inance ,it$in t$e &rescribe! &erio! o(
1/5 !a's it !oes not (ollo, as a legal conse.%ence
t$ereo( t$at an ot$er,ise invali! or!inance is
t$ereb' vali!ate!.
M%c$ less can it be inter&rete! to mean t$at t$e
)ecretar' o( Finance can no longer act b'
s%s&en!ing an!?or revo+ing an invali! or!inance
even a(ter t$e la&se o( t$e 1/5D!a' &erio!. #ll t$at
t$e la, sa's is t$at a(ter sai! &erio! t$e ta4
or!inance s$all remain in (orce. 2$e &rescribe!
&erio! (or revie, is onl' !irector' an! t$e )ecretar'
o( Finance ma' still revie, t$e or!inance an! act
accor!ingl' even a(ter t$e la&se o( t$e sai! &erio!
&rovi!e! $e acts ,it$in a reasonable time.
Conse.%entl' even a(ter t$e &rescribe! &erio! $as
la&se! s$o%l! t$e )ecretar' o( Finance %&on
revie, (in! t$at t$e ta4 or (ee levie! or im&ose! is
%n9%st e4cessive o&&ressive con(iscator' or not
among t$ose t$at t$e &artic%lar local government
ma' im&ose in t$e e4ercise o( its &o,er in
accor!ance ,it$ t$is Co!eA or ,$en t$e ta4
or!inance is in ,$ole or in &art contrar' to t$e
7G
!eclare! national economic &olic'A or ,$en t$e
or!inance is !iscriminator' in nat%re on t$e con!%ct
o( b%siness or calling or in restraint o( tra!e t$e
)ecretar' o( Finance ma' certainl' s%s&en! t$e
e((ectivit' o( s%c$ or!inance an! revo+e t$e same
,it$o%t &re9%!ice to t$e rig$t to a&&eal to t$e co%rts
,it$in 15 !a's a(ter recei&t o( t$e notice o(
s%s&ension. 2$e same r%le s$o%l! a&&l' to t$e
&rovincial an! cit' treas%rers as t$e case ma' be
%n!er )ection 00 o( t$e Local 2a4 Co!e.
Or!inance No. 00: n%ll an! voi!. #n' ta4es &ai!
%n!er &rotest t$ere%n!er s$o%l! be accor!ingl'
re(%n!e! to t$e ta4&a'ers concerne!.
Philippine Petroleum Corporation v. Municipalit# o! Pililia
Facts: ==C is engage! in t$e man%(act%re o( l%bricate! oil
basestoc+ ,$ic$ is a &etrole%m &ro!%ct ,it$ its re(iner' &lant in
Mala'a =ililia -iBal. )ec. 10/ ;N*-C o( 1818<: Man%(act%re! oils
an! ot$er (%els are s%b9ect to s&eci(ic ta4. =D /11: Local 2a4 Co!e:
M%nici&alit' ma' im&ose ta4es on b%siness e4ce&t t$ose (or ,$ic$
(i4e! ta4es are &rovi!e! on man%(act%rers im&orters or &ro!%cers
o( an' article o( commerce o( ,$atever +in! or nat%re incl%!ing
bre,ers !istillers recti(iers an! com&o%n!ers o( li.%ors !istille!
s&irits an!? or ,ines. Finance )ecretar' iss%e! =rovincial Circ%lar
No. /GD71 ,$ic$ !irecte! all LG@ treas%rers to re(rain (rom
collecting an' local ta4 im&ose! in ol! or ne, or!inances in t$e
b%siness o( man%(act%ring ,$olesaling retailing or !ealing in
&etrole%m &ro!%cts s%b9ect to s&eci(ic ta4 %n!er t$e N*-CA an!
=rovincial Circ%lar No. /G #D71: *nstr%cte! treas%rers to sto&
collecting an' local ta4 im&ose! on t$e b%sinesses o(
man%(act%ring ,$olesaling retailing or !ealing in &etrole%m
&ro!%cts s%b9ect to t$e s&eci(ic ta4 %n!er t$e N*-C &%rs%ant to
or!inances enacte! be(ore or a(ter t$e e((ectivit' o( t$e Local 2a4
Co!e on 1 7%l' 1871. M%nici&alit' o( =ililia im&ose! M%nici&al 2a4
Or!inance No. 1 ;=ililia 2a4 Co!e< )ec 8P15 im&ose! a ta4 on
b%siness e4ce&t (or t$ose ,$ic$ (i4e! ta4es are &rovi!e! in t$e
L2C on man%(act%rers im&orters or &ro!%cers o( an' article o(
commerce o( ,$atever +in! or nat%re incl%!ing bre,ers !istillers
recti(iers an! com&o%n!ers o( li.%ors !istille! s&irits an!? or
,ines as ,ell as ma'or>s &ermit sanitar' ins&ection (ee an!
storage &ermit (ee (or (lammable comb%stible or e4&losive
s%bstances
On #&ril 11 1870 =.D. 01G ,as &rom%lgate! increasing t$e
s&eci(ic ta4 on l%bricating oils gasoline b%n+er (%el oil !iesel (%el
oil an! ot$er similar &etrole%m &ro!%cts levie! %n!er )ections 10/
100 an! 10C o( t$e N*-C as amen!e! an! granting &rovinces
cities an! m%nici&alities certain s$ares in t$e s&eci(ic ta4 on s%c$
&ro!%cts in lie% o( local ta4es im&ose! on &etrole%m &ro!%cts.
2$e .%estione! M%nici&al 2a4 Or!inance No. 1 ,as revie,e! an!
a&&rove! b' t$e =rovincial 2reas%rer o( -iBal on 7an%ar' 11 187C
;-ollo &. 101< b%t ,as not im&lemente! an!?or en(orce! b' t$e
M%nici&alit' o( =ililla beca%se o( its $aving been s%s&en!e! %& to
no, in vie, o( =rovincial Circ%lar Nos. /GD71 an! /G #D71.
=rovincial Circ%lar No. GD77 !ate! Marc$ 11 1877 ,as also iss%e!
!irecting all cit' an! m%nici&al treas%rers to re(rain (rom collecting
t$e soDcalle! storage (ee on (lammable or comb%stible materials
im&ose! %n!er t$e local ta4 or!inance o( t$eir res&ective localit'
sai! (ee &arta+ing o( t$e nat%re o( a strictl' reven%e meas%re or
service c$arge. On 7%ne 1 1877 =.D. 11C8 ot$er,ise +no,n as t$e
N*-C o( 1877 ,as enacte! )ection 1C1 o( ,$ic$ s&eci(icall'
im&oses s&eci(ic ta4 on re(ine! an! man%(act%re! mineral oils an!
motor (%els.
3n(orcing t$e &rovisions o( t$e aboveDmentione! or!inance t$e
res&on!ent (ile! a com&laint against ==C (or t$e collection o( t$e
b%siness ta4 (rom 1878 to 188GA storage &ermit (ees (rom 187C to
188GA ma'orHs &ermit an! sanitar' ins&ection (ees (rom 187C to
1880. ==C $o,ever $ave alrea!' &ai! t$e lastDname! (ees starting
188C.
-2C: ==C to &a' b%siness ta4 storage &ermit (ee ma'or>s &ermit
(ee sanitar' ins&ection (ee as ,ell as costs o( s%it. M- !enie!.
*ss%e: 6ON ==C ,$ose oil &ro!%cts are s%b9ect to s&eci(ic ta4 %n!er
t$e N*-C is still liable to &a' ta4 on b%siness an! storage (ees an!
ma'orHs &ermit an! sanitar' ins&ection (ee %nto =ililla base! on
M%nici&al Or!inance No. 1.
==C: ;a< =rovincial Circ%lar No. /G71 !eclare! as
contrar' to national economic &olic' t$e im&osition
o( local ta4es on t$e man%(act%re o( &etrole%m
&ro!%cts as t$e' are alrea!' s%b9ect to s&eci(ic ta4
%n!er t$e N*-CA ;b< t$e above !eclaration covers
not onl' ol! ta4 or!inances b%t ne, ones as ,ell as
t$ose ,$ic$ ma' be enacte! in t$e (%t%reA ;c< bot$
77
=rovincial Circ%lars ;=C< /GD71 an! /G #D71 are still
e((ective $ence %nless an! %ntil revo+e! an' e((ort
on t$e &art o( t$e res&on!ent to collect t$e
s%s&en!e! ta4 on b%siness (rom t$e &etitioner
,o%l! be illegal an! %na%t$oriBe!A an! ;!< )ection /
o( =.D. 01G &ro$ibits t$e im&osition o( local ta4es on
&etrole%m &ro!%cts. =C No. /GD71 an! =C No. /G #D
71 s%s&en!e! t$e e((ectivit' o( local ta4 or!inances
im&osing a ta4 on b%siness %n!er )ection 18 ;a< o(
t$e Local 2a4 Co!e ;=.D. No. /11< ,it$ regar! to
man%(act%rers retailers ,$olesalers or !ealers in
&etrole%m &ro!%cts s%b9ect to t$e s&eci(ic ta4 %n!er
t$e N*-C N*-C in vie, o( )ection // ;b< o( t$e Co!e
regar!ing nonDim&osition b' m%nici&alities o( ta4es
on articles s%b9ect to s&eci(ic ta4 %n!er t$e
&rovisions o( t$e N*-C.
2$ere is no .%estion t$at =ilillaHs M%nici&al 2a4
Or!inance No. 1 im&osing t$e assaile! ta4es (ees
an! c$arges is vali! es&eciall' )ection 8 ;#< ,$ic$
accor!ing to t$e trial co%rt ",as li(te! in toto an!?or
is a literal re&ro!%ction o( )ection 18 ;a< o( t$e Local
2a4 Co!e as amen!e! b' =.D. No. 0/G." *t con(orms
,it$ t$e man!ate o( sai! la,. B%t =.D. No. 0/G
amen!ing t$e Local 2a4 Co!e is !eeme! to $ave
re&eale! =rovincial Circ%lar Nos. /GD71 an! /G #D71
iss%e! b' t$e )ecretar' o( Finance ,$en )ections 18
an! 18 ;a< ,ere carrie! over into =.D. No. 0/G an!
no e4em&tions ,ere given to man%(act%rers
,$olesalers retailers or !ealers in &etrole%m
&ro!%cts.
6ellDsettle! is t$e r%le t$at a!ministrative
reg%lations m%st be in $armon' ,it$ t$e &rovisions
o( t$e la,. *n case o( !iscre&anc' bet,een t$e basic
la, an! an im&lementing r%le or reg%lation t$e
(ormer &revails. #s a&tl' $el! b' t$e co%rt a .%o:
Necessaril' t$ere co%l! not be an' ot$er logical
concl%sion t$an t$at t$e (ramers o( =.D. No. 0/G
reall' an! act%all' inten!e! to terminate t$e
e((ectivit' an!?or en(orceabilit' o( =rovincial
Circ%lars Nos. /GD71 an! /G #D71 inasm%c$ as
clearl' t$ese circ%lars are in contravention ,it$ )ec.
18 ;a< o( =.D. 0/GDt$e amen!ator' la, to =.D. No.
/11. 2$at intention to terminate is ver' a&&arent
an! in (act it is e4&resse! in clear an! %ne.%ivocal
terms in t$e e((ectivit' an! re&ealing cla%se o( =.D.
0/G
F%rt$ermore ,$ile )ection / o( =.D. 01G &ro$ibits
t$e im&osition o( local ta4es on &etrole%m &ro!%cts
sai! !ecree !i! not amen! )ections 18 an! 18 ;a< o(
=.D. /11 as amen!e! b' =.D. 0/G ,$erein t$e
m%nici&alit' is grante! t$e rig$t to lev' ta4es on
b%siness o( man%(act%rers im&orters &ro!%cers o(
an' article o( commerce o( ,$atever +in! or nat%re.
# ta4 on b%siness is !istinct (rom a ta4 on t$e article
itsel(. 2$%s i( t$e im&osition o( ta4 on b%siness o(
man%(act%rers etc. in &etrole%m &ro!%cts
contravenets a !eclare! national &olic' it s$o%l!
$ave been e4&ressl' state! in =.D. No. 01G.
2$e e4ercise b' local governments o( t$e &o,er to
ta4 is or!aine! b' t$e &resent Constit%tion. 2o allo,
t$e contin%o%s e((ectivit' o( t$e &ro$ibition set (ort$
in =C No. /GD71 ;1< ,o%l! be tantamo%nt to
restricting t$eir &o,er to ta4 b' mere a!ministrative
iss%ances. @n!er )ection C #rticle J o( t$e 1887
Constit%tion onl' g%i!elines an! limitations t$at
ma' be establis$e! b' Congress can !e(ine an!
limit s%c$ &o,er o( local governments. 2$%s:
3ac$ local government %nit s$all $ave t$e &o,er to
create its o,n so%rces o( reven%es an! to lev'
ta4es (ees an! c$arges s%b9ect to s%c$ g%i!elines
an! limitations as t$e Congress ma' &rovi!e
consistent ,it$ t$e basic &olic' o( local a%tonom' . .
.
=rovincial Circ%lar No. GD77 en9oining all cit' an!
m%nici&al treas%rers to re(rain (rom collecting t$e
soDcalle! storage (ee on (lammable or comb%stible
materials im&ose! in t$e local ta4 or!inance o( t$eir
res&ective localit' (rees &etitioner ==C (rom t$e
&a'ment o( storage &ermit (ee.
2$e storage &ermit (ee being im&ose! b' =ilillaHs ta4
or!inance is a (ee (or t$e installation an! +ee&ing in
storage o( an' (lammable comb%stible or e4&losive
s%bstances. *nasm%c$ as sai! storage ma+es %se o(
tan+s o,ne! not b' t$e m%nici&alit' o( =ililla b%t b'
78
&etitioner ==C same is obvio%sl' not a c$arge (or
an' service ren!ere! b' t$e m%nici&alit' as ,$at is
envisione! in )ection 17 o( t$e same Co!e.
)ection 15 ;B< ;11< o( =ilillaHs M%nici&al 2a4
Or!inance No. 1 &rescribing a &ermit (ee is a &ermit
(ee allo,e! %n!er )ection 1G o( t$e amen!e! Co!e.
#s to t$e a%t$orit' o( t$e ma'or to ,aive &a'ment
o( t$e ma'orHs &ermit an! sanitar' ins&ection (ees
t$e trial co%rt !i! not err in $ol!ing t$at "since t$e
&o,er to ta4 incl%!es t$e &o,er to e4em&t t$ereo(
,$ic$ is essentiall' a legislative &rerogative it
(ollo,s t$at a m%nici&al ma'or ,$o is an e4ec%tive
o((icer ma' not %nilaterall' ,it$!ra, s%c$ an
e4&ression o( a &olic' t$r% t$e enactment o( a ta4."
2$e ,aiver &arta+es o( t$e nat%re o( an e4em&tion.
*t is an ancient r%le t$at e4em&tions (rom ta4ation
are constr%e! in strictissimi 9%ris against t$e
ta4&a'er an! liberall' in (avor o( t$e ta4ing
a%t$orit'. 2a4 e4em&tions are loo+e! %&on ,it$
!is(avor. 2$%s in t$e absence o( a clear an! e4&ress
e4em&tion (rom t$e &a'ment o( sai! (ees t$e
,aiver cannot be recogniBe!. #s alrea!' state! it is
t$e la,Dma+ing bo!' an! not an e4ec%tive li+e t$e
ma'or ,$o can ma+e an e4em&tion. @n!er )ection
1G o( t$e Co!e a &ermit (ee li+e t$e ma'orHs &ermit
s$all be re.%ire! be(ore an' in!ivi!%al or 9%ri!ical
entit' s$all engage in an' b%siness or occ%&ation
%n!er t$e &rovisions o( t$e Co!e.
Ho,ever since t$e Local 2a4 Co!e !oes not &rovi!e
t$e &rescri&tive &erio! (or collection o( local ta4es
#rticle 1101 o( t$e Civil Co!e a&&lies. )ai! la,
&rovi!es t$at an action %&on an obligation create!
b' la, &rescribes ,it$in ten ;15< 'ears (rom t$e
time t$e rig$t o( action accr%es. 2$e M%nici&alit' o(
=ililla can t$ere(ore en(orce t$e collection o( t$e ta4
on b%siness o( &etitioner ==C !%e (rom 187G to
188G an! NO2 t$e ta4 t$at $a! accr%e! &rior to
187G.
=-3M*)3) CON)*D3-3D ,it$ t$e MOD*F*C#2*ON
t$at b%siness ta4es accr%ing =-*O- to 187G are not
to be &ai! b' ==C ;beca%se t$e same $ave
&rescribe!< an! t$at storage (ees are not also to be
&ai! b' ==C ;(or t$e storage tan+s are o,ne! b' ==C
an! not b' t$e m%nici&alit' an! t$ere(ore cannot
be a c$arge (or service b' t$e m%nici&alit'< t$e
assaile! D3C*)*ON is $ereb' #FF*-M3D.
&loro Cement Corp. v. Gorospe
Facts: M%nici&alit' o( L%gait Misamis Oriental (ile! a com&laint (or
collection o( man%(act%rer>s an! e4&orter>s ta4es &l%s s%rc$arges
against Floro Cement Cor&oration. L%gait base! it on M%nici&al
Or!inance No. C ;M%nici&al -even%e Co!e< &asse! &%rs%ant to =D
/11A an! Or!inance No. 15.
Floro>s !e(ense: not liable since t$e &lainti((>s &o,er to lev' (ees on
EMines Mining Cor&orations an! Mineral =ro!%ctsF ,as limite! b'
)ec. C/ o( =D 0G1 an! t$at it ,as grante! b' t$e )ecretar' o(
#gric%lt%re an! Nat%ral -eso%rces a certi(icate o( ta4 e4em&tion (or
a &erio! o( C 'ears ,$ic$ covers all ta4es e4ce&t income ta4.
*ss%es: 1. 6ON cement is a mineral &ro!%ct. NO.
t$is Co%rt $as consistentl' $el! t$at it is not a
mineral &ro!%ct b%t rat$er a man%(act%re! &ro!%ct.
6$ile cement is com&ose! o( 85Y minerals it is not
merel' an a!mi4t%re or blen!ing o( ra, materials
as lime silica s$ale an! ot$ers. *t is t$e res%lt o( a
!e(inite &rocessDt$e cr%s$ing o( minerals grin!ing
mi4ing calcining a!!ing o( retar!er or ra, g'&s%m
*n s$ort be(ore cement reac$es its saleable (orm
t$e minerals $a! alrea!' %n!ergone a c$emical
c$ange t$ro%g$ man%(act%ring &rocess.
/. 6ON ==C ma' claim e4em&tion (rom &a'ing man%(act%rer>s
an! e4&orter>s ta4es. NO.
t$e &o,er o( ta4ation is a $ig$ &rerogative o(
sovereignt' t$e relin.%is$ment is never &res%me!
an! an' re!%ction or !imin%tion t$ereo( ,it$
res&ect to its mo!e or its rate m%st be strictl'
constr%e! an! t$e same m%st be coac$e! in clear
an! %nmista+able terms in or!er t$at it ma' be
a&&lie!. More s&eci(icall' state! t$e general r%le is
t$at an' claim (or e4em&tion (rom t$e ta4 stat%te
s$o%l! be strictl' constr%e! against t$e ta4&a'er.
He ,$o claims an e4em&tion m%st be able to &oint
78
o%t some &rovision o( la, creating t$e rig$tA it
cannot be allo,e! to e4ist %&on a mere vag%e
im&lication or in(erence. *t m%st be s$o,n
in!%bitabl' to e4ist (or ever' &res%m&tion is
against it an! a ,ellD(o%n!e! !o%bt is (atal to t$e
claim. 2$e &etitioner (aile! to meet t$is
re.%irement.
#s $el! b' t$e lo,er co%rt t$e e4em&tion
mentione! in )ec. C/ o( =.D. No. 0G1 re(ers onl' to
mac$ineries e.%i&ment tools (or &ro!%ction etc.
as &rovi!e! in )ec. C1 o( t$e same !ecree. 2$e
man%(act%re an! t$e e4&ort o( cement !oes not (all
%n!er t$e sai! &rovision (or it is not a mineral
&ro!%ct. *t is not cement t$at is mine! onl' t$e
mineral &ro!%cts com&osing t$e (inis$e! &ro!%ct.
F%rt$ermore b' t$e &artiesH o,n sti&%lation o( (acts
s%bmitte! be(ore t$e co%rt a .%o it is a!mitte! t$at
Floro Cement Cor&oration is engage! in t$e
man%(act%ring an! selling incl%!ing e4&orting o(
cement. #s s%c$ an! since t$e ta4es so%g$t to be
collecte! ,ere levie! on t$ese activities &%rs%ant to
)ec. 18 o( =.D. No. /11 Or!inances Nos. C an! 15
,$ic$ ,ere enacte! &%rs%ant to =.D. No. /11 an!
=.D. No. 0/G res&ectivel' &ro&erl' a&&l' to
&etitioner Floro Cement Cor&oration.
'uzon an Mapagu v. CA
Facts: 2$e )angg%niang Ba'an o( Camalani%gan Caga'an a!o&te!
-esol%tion No. 8 ,$ic$ solicits a 1Y !onation (rom t$res$er
o&erators ,$o a&&l' (or a E&ermit to t$res$F ,it$in t$e
m%nici&alit'>s 9%ris!iction to $el& (inance t$e constr%ction o( t$e
m%nici&alit'>s )&orts an! N%trition Center. )%c$ 1Y s$all come
(rom t$e val%e o( t$e &ala' t$res$e! b' t$em in t$e area. 2o
im&lement t$e resol%tion M%nici&al 2reas%rer Ma&ag% &re&are! an
agreement to !onate (or signat%re o( all t$res$er?o,ner? o&erators
a&&l'ing (or a ma'or>s &ermit. 7%ra!o sent $is agent to t$e
2reas%rer>s o((ice to &a' t$e license (ee (or t$res$er o&erators.
Ma&ag% re(%se! to acce&t &a'ment an! re.%ire! 7%ra!o to (irst
sec%re a ma'or>s &ermit. Ma'or 2%Bon sai! t$at 7%ra!o s$o%l! (irst
com&l' ,it$ -es 8 an! sign t$e agreement be(ore t$e &ermit co%l!
be iss%e!. 7%ra!o ignore! t$e re.%irement an! sent $is license (ee
&a'ment t$ro%g$ &ostal mone' or!er. His &a'ment ,as ret%rne!
on t$e gro%n! t$at $e (aile! to com&l' ,it$ -es 8. 7%ra!o (ile! a
s&ecial civil action (or man!am%s ,? !amages to com&el t$e
iss%ance o( t$e ma'or>s &ermit an! license an! a &etition (or
!eclarator' 9%!gment against -es 8 an! t$e im&lementing
agreement (or being illegal eit$er as a !onation?ta4 meas%re
-2C: @&$el! -es 8 an! im&lementing agreement an! !ismisse!
claims (or !amages
C#: #((irme! vali!it' o( -es 8 an! im&lementing agreement b%t
(o%n! Ma'or 2%Bon an! 2reas%rer Ma&ag% to $ave acte!
malicio%sl' an! in ba! (ait$ ,$en t$e' !enie! 7%ra!o>s a&&lication.
*ss%e: 6ON t$e ta4 meas%re contravenes t$e limitations on t$e
ta4ing &o,ers o( LG@s %n!er )ec C o( t$e LGC.
)C ,ill not r%le on vali!it' o( -es 8 an! t$e
im&lementing agreement beca%se t$e iss%e $as not
been raise! as an assigne! error.
Ho,ever it observes t$at t$at C# sai! no more t$an
-es 8 ,as &asse! b' t$e )angg%niang Ba'an in t$e
la,(%l e4ercise o( its legislative &o,ers in &%rs%ance
to ;1< #rt. J* )ec. C 1871 Consti Es%b9ect to s%c$
limitation as ma' be &rovi!e! b' la,F an! ;/< #rt. 0
)ec. /8 o( =D /11 ENt$e barrio co%ncil ma' solicit
monies materials an! ot$er contrib%tions (rom N
&rivate agencies an! in!ivi!%alsF. 2$e )C sai! t$at
t$is ,as an oversim&li(ication. 2$e C# (aile! to o((er
an' e4&lanation (or its concl%sion nor !oes it !isc%ss
its o,n conce&t o( t$e nat%re o( t$e resol%tion.
*( -es. 8 is claime! to be a EsolicitationF:
*m&lementing agreement ma+es t$e
E!onationFobligator' an! a con!ition &rece!ent to
t$e iss%ance o( a ma'or>s &ermit. 2$ere(ore it goes
against t$e nat%re o( a !onation.
*( it is to be consi!ere! as a ta4 or!inance it m%st
be s$o,n to $ave been enacte! in accor!ance ,it$
t$e re.%irements o( t$e Local 2a4 Co!e. *t ,o%l!
incl%!e t$e $ol!ing o( a &%blic $earing on t$e
meas%re its s%bse.%ent a&&roval b' t$e )ecretar'
o( Finance in a!!ition to t$e re.%isites (or
&%blication o( or!inances in general
85
*rilon v. Lim
Facts: =%rs%ant to )ec 187 LGC
1
t$e )ecretar' o( 7%stice $a! on
a&&eal to $im o( (o%r oil com&anies an! a ta4&a'er !eclare!
Or!inance No. 7780 ot$er,ise +no,n as t$e Manila -even%e Co!e
n%ll an! voi! (or nonDcom&liance ,it$ t$e &rescribe! &roce!%re in
t$e enactment o( ta4 or!inances an! (or containing certain
&rovisions contrar' to la, an! &%blic &olic'. *n Manila>s &etition (or
certiorari t$e Manila -2C s%staine! t$e or!inance. *t also !eclare!
)ection 187 o( t$e LGC as %nconstit%tional since it vests in t$e
7%stice )ecretar' t$e &o,er o( control over LG@s in violation o( t$e
&olic' o( local a%tonom' man!ate! in t$e Constit%tion.
7%stice )ecretar': *t is constit%tional an! t$e &roce!%ral
re.%irements (or t$e enactment o( ta4 or!inances as s&eci(ie! in
t$e LGC $a! in!ee! not been observe!.
*ss%e: 6ON )ec 187 o( t$e LGC is constit%tional. :3).
)ection 187 a%t$oriBes t$e )ecretar' o( 7%stice to
revie, onl' t$e constit%tionalit' or legalit' o( t$e
ta4 or!inance an! i( ,arrante! to revo+e it on
eit$er or bot$ o( t$ese gro%n!s. 6$en $e alters or
mo!i(ies or sets asi!e a ta4 or!inance $e is not also
&ermitte! to s%bstit%te $is o,n 9%!gment (or t$e
9%!gment o( t$e local government t$at enacte! t$e
meas%re. )ecretar' Drilon !i! set asi!e t$e Manila
-even%e Co!e b%t $e !i! not re&lace it ,it$ $is
o,n version o( ,$at t$e Co!e s$o%l! be. He !i! not
&rono%nce t$e or!inance %n,ise or %nreasonable as
1 =roce!%re For #&&roval #n! 3((ectivit' O( 2a4 Or!inances #n! -even%e Meas%resA
Man!ator' =%blic Hearings. S 2$e &roce!%re (or a&&roval o( local ta4 or!inances
an! reven%e meas%res s$all be in accor!ance ,it$ t$e &rovisions o( t$is Co!e:
=rovi!e! 2$at &%blic $earings s$all be con!%cte! (or t$e &%r&ose &rior to t$e
enactment t$ereo(A =rovi!e! (%rt$er 2$at an' .%estion on t$e constit%tionalit' or
legalit' o( ta4 or!inances or reven%e meas%res ma' be raise! on a&&eal ,it$in
t$irt' ;15< !a's (rom t$e e((ectivit' t$ereo( to t$e )ecretar' o( 7%stice ,$o s$all
ren!er a !ecision ,it$in si4t' ;G5< !a's (rom t$e !ate o( recei&t o( t$e a&&eal:
=rovi!e! $o,ever 2$at s%c$ a&&eal s$all not $ave t$e e((ect o( s%s&en!ing t$e
e((ectivit' o( t$e or!inance an! t$e accr%al an! &a'ment o( t$e ta4 (ee or c$arge
levie! t$erein: =rovi!e! (inall' 2$at ,it$in t$irt' ;15< !a's a(ter recei&t o( t$e
!ecision or t$e la&se o( t$e si4t'D!a' &erio! ,it$o%t t$e )ecretar' o( 7%stice acting
%&on t$e a&&eal t$e aggrieve! &art' ma' (ile a&&ro&riate &rocee!ings ,it$ a co%rt
o( com&etent 9%ris!iction.
a basis (or its ann%lment. He !i! not sa' t$at in $is
9%!gment it ,as a ba! la,. 6$at $e (o%n! onl' ,as
t$at it ,as illegal. #ll $e !i! in revie,ing t$e sai!
meas%re ,as !etermine i( t$e &etitioners ,ere
&er(orming t$eir (%nctions in accor!ance ,it$ la,
t$at is ,it$ t$e &rescribe! &roce!%re (or t$e
enactment o( ta4 or!inances an! t$e grant o(
&o,ers to t$e cit' government %n!er t$e LGC. #s
,e see it t$at ,as an act not o( control b%t o( mere
s%&ervision.
#n o((icer in control la's !o,n t$e r%les in t$e !oing
o( an act. *( t$e' are not (ollo,e! $e ma' in $is
!iscretion or!er t$e act %n!one or reD!one b' $is
s%bor!inate or $e ma' even !eci!e to !o it $imsel(.
)%&ervision !oes not cover s%c$ a%t$orit'. 2$e
s%&ervisor or s%&erinten!ent merel' sees to it t$at
t$e r%les are (ollo,e! b%t $e $imsel( !oes not la'
!o,n s%c$ r%les nor !oes $e $ave t$e !iscretion to
mo!i(' or re&lace t$em. *( t$e r%les are not
observe! $e ma' or!er t$e ,or+ !one or reD!one
b%t onl' to con(orm to t$e &rescribe! r%les. He ma'
not &rescribe $is o,n manner (or t$e !oing o( t$e
act. He $as no 9%!gment on t$is matter e4ce&t to
see to it t$at t$e r%les are (ollo,e!. *n t$e o&inion o(
t$e Co%rt )ecretar' Drilon !i! &recisel' t$is an! no
more nor less t$an t$is an! so &er(orme! an act not
o( control b%t o( mere s%&ervision.
2a%le v. )antos cite! in t$e !ecision $as no
a&&lication $ere beca%se t$e 9%ris!iction claime! b'
t$e )ecretar' o( Local Governments over election
contests in t$e Mati&%nan ng Mga Baranga' ,as
$el! to belong to t$e Commission on 3lections b'
constit%tional &rovision. 2$e con(lict ,as over
9%ris!iction not s%&ervision or control.
)igni(icantl' a r%le similar to )ection 187 a&&eare!
in t$e Local #%tonom' #ct ,$ic$ &rovi!e! in its
)ection / as (ollo,s: # ta4 or!inance s$all go into
e((ect on t$e (i(teent$ !a' a(ter its &assage %nless
t$e or!inance s$all &rovi!e ot$er,ise: =rovi!e!
$o,ever 2$at t$e )ecretar' o( Finance s$all $ave
a%t$orit' to s%s&en! t$e e((ectivit' o( an' or!inance
,it$in one $%n!re! an! t,ent' !a's a(ter recei&t b'
81
$im o( a co&' t$ereo( i( in $is o&inion t$e ta4 or
(ee t$erein levie! or im&ose! is %n9%st e4cessive
o&&ressive or con(iscator' or ,$en it is contrar' to
!eclare! national econom' &olic' an! ,$en t$e
sai! )ecretar' e4ercises t$is a%t$orit' t$e e((ectivit'
o( s%c$ or!inance s$all be s%s&en!e! eit$er in &art
or as a ,$ole (or a &erio! o( t$irt' !a's ,it$in
,$ic$ &erio! t$e local legislative bo!' ma' eit$er
mo!i(' t$e ta4 or!inance to meet t$e ob9ections
t$ereto or (ile an a&&eal ,it$ a co%rt o( com&etent
9%ris!ictionA ot$er,ise t$e ta4 or!inance or t$e &art
or &arts t$ereo( !eclare! s%s&en!e! s$all be
consi!ere! as revo+e!. 2$erea(ter t$e local
legislative bo!' ma' not reim&ose t$e same ta4 or
(ee %ntil s%c$ time as t$e gro%n!s (or t$e
s%s&ension t$ereo( s$all $ave cease! to e4ist.
2$at section allo,e! t$e )ecretar' o( Finance to
s%s&en! t$e e((ectivit' o( a ta4 or!inance i( in $is
o&inion t$e ta4 or (ee levie! ,as %n9%st e4cessive
o&&ressive or con(iscator'. Determination o( t$ese
(la,s ,o%l! involve t$e e4ercise o( 9%!gment or
!iscretion an! not merel' an e4amination o(
,$et$er or not t$e re.%irements or limitations o(
t$e la, $a! been observe!A $ence it ,o%l! smac+
o( control rat$er t$an mere s%&ervision. 2$at &o,er
,as never .%estione! be(ore t$is Co%rt b%t at an'
rate t$e )ecretar' o( 7%stice is not given t$e same
latit%!e %n!er )ection 187. #ll $e is &ermitte! to !o
is ascertain t$e constit%tionalit' or legalit' o( t$e
ta4 meas%re ,it$o%t t$e rig$t to !eclare t$at in $is
o&inion it is %n9%st e4cessive o&&ressive or
con(iscator'. He $as no !iscretion on t$is matter. *n
(act )ecretar' Drilon set asi!e t$e Manila -even%e
Co!e onl' on t,o gro%n!s to ,it$ t$e incl%sion
t$erein o( certain %ltra vires &rovisions an! nonD
com&liance ,it$ t$e &rescribe! &roce!%re in its
enactment. 2$ese gro%n!s a((ecte! t$e legalit' not
t$e ,is!om or reasonableness o( t$e ta4 meas%re.
2$e iss%e o( nonDcom&liance ,it$ t$e &rescribe!
&roce!%re in t$e enactment o( t$e Manila -even%e
Co!e is anot$er matter. *n $is resol%tion )ecretar'
Drilon !eclare! t$at t$ere ,ere no ,ritten notices o(
&%blic $earings on t$e &ro&ose! Manila -even%e
Co!e t$at ,ere sent to intereste! &arties as
re.%ire! b' #rt. /7G;b< o( t$e *m&lementing -%les o(
t$e LGC nor ,ere co&ies o( t$e &ro&ose! or!inance
&%blis$e! in t$ree s%ccessive iss%es o( a ne,s&a&er
o( general circ%lation &%rs%ant to #rt. /7G;a<. No
min%tes ,ere s%bmitte! to s$o, t$at t$e obligator'
&%blic $earings $a! been $el!. Neit$er ,ere co&ies
o( t$e meas%re as a&&rove! &oste! in &rominent
&laces in t$e cit' in accor!ance ,it$ )ec. C11;a< o(
t$e LGC. Finall' t$e Manila -even%e Co!e ,as not
translate! into =ili&ino or 2agalog an! !isseminate!
among t$e &eo&le (or t$eir in(ormation an!
g%i!ance con(ormabl' to )ec. C8;b< o( t$e Co!e.
7%!ge =alattao (o%n! ot$er,ise. He !eclare! t$at all
t$e &roce!%ral re.%irements $a! been observe! in
t$e enactment o( t$e Manila -even%e Co!e an! t$at
t$e Cit' o( Manila $a! not been able to &rove s%c$
com&liance be(ore t$e )ecretar' onl' beca%se $e
$a! given it onl' (ive !a's ,it$in ,$ic$ to gat$er
an! &resent to $im all t$e evi!ence ;consisting o( /C
e4$ibits< later s%bmitte! to t$e trial co%rt.
2o get to t$e bottom o( t$is .%estion t$e Co%rt
acce!e! to t$e motion o( t$e res&on!ents an!
calle! (or t$e elevation to it o( t$e sai! e4$ibits. 6e
$ave care(%ll' e4amine! ever' one o( t$ese e4$ibits
an! agree ,it$ t$e trial co%rt t$at t$e &roce!%ral
re.%irements $ave in!ee! been observe!. Notices
o( t$e &%blic $earings ,ere sent to intereste!
&arties as evi!ence! b' 34$ibits GD1 to 17. 2$e
min%tes o( t$e $earings are (o%n! in 34$ibits M MD
1 MD/ an! MD1. 34$ibits B an! C s$o, t$at t$e
&ro&ose! or!inances ,ere &%blis$e! in t$e Balita
an! t$e Manila )tan!ar! on #&ril /1 an! /C 1881
res&ectivel' an! t$e a&&rove! or!inance ,as
&%blis$e! in t$e 7%l' 1 0 C 1881 iss%es o( t$e
Manila )tan!ar! an! in t$e 7%l' G 1881 iss%e o(
Balita as s$o,n b' 34$ibits W WD1 WD/ an! WD1.
2$e onl' e4ce&tions are t$e &osting o( t$e or!inance
as a&&rove! b%t t$is omission !oes not a((ect its
vali!it' consi!ering t$at its &%blication in t$ree
s%ccessive iss%es o( a ne,s&a&er o( general
8/
circ%lation ,ill satis(' !%e &rocess. *t $as also not
been s$o,n t$at t$e te4t o( t$e or!inance $as been
translate! an! !isseminate! b%t t$is re.%irement
a&&lies to t$e a&&roval o( local !evelo&ment &lans
an! &%blic investment &rograms o( t$e local
government %nit an! not to ta4 or!inances.

Mactan Cebu )nternational Airport Authorit# v. Marcos
Facts: MC*## ,as create! b' -# G8C8 ,$ic$ &rovi!e! t$at it be
e4em&te! (rom &a'ment o( realt' ta4es. 2$e O((ice o( t$e
2reas%rer o( Ceb% Cit' !eman!e! &a'ment (or realt' ta4es on
several &arcels o( lan! belonging to MC*##. MC*## ob9ecte!
claiming t$at it is e4em&t (rom &a'ment o( realit' ta4es. *t also
sai! t$at as it is an instr%mentalit' o( t$e government &er(orming
governmental (%nctions it is e4em&te! as &rovi!e! (or b' )ec. 111
o( t$e LGC. 2$e Cit' insiste! t$at MC*## is not ta4 e4em&t as its
e4em&tion $a! been ,it$!ra,n b' )ections 181 an! /10 o( t$e
same co!e. MC*## &ai! t$e ta4 acco%nt %n!er &rotest b%t it (ile! a
&etition (or !eclarator' relie( sa'ing t$at t$e &o,ers o( LG@s !o not
e4ten! to t$e lev' o( ta4es or (ees o( an' +in! on an
instr%mentalit' o( t$e national government. 2C: !ismisse! t$e
&etition (or !eclarator' relie(. M- !enie!.
MC*##: *t is a GOCC man!ate! to &er(orm (%nctions in t$e same
categor' as an instr%mentalit' o( t$e government an! it is an
attac$e! agenc' o( t$e DO2C. 2$%s it ma' stan! in t$e same
(ooting as an agenc' or instr%mentalit' o( t$e national government.
Hence its ta4 e4em&tion &rivilege %n!er its c$arter cannot be
consi!ere! as ,it$!ra,n ,it$ t$e &assage o( t$e LGC beca%se )ec
111 s&eci(icall' states t$at t$e ta4ing &o,ers o( LG@s s$all not
e4ten! to t$e lev' o( ta4es or (ees or c$arges o( an' +in! on t$e
national government its agencies or instr%mentalities.
Ceb% $as no &o,er nor a%t$orit' to im&ose realt' ta4es %&on it
base! on )ec 111 o( t$e LGC cites Basco v. =#GCO-. *n relation to
)ection /10 o( t$e LGC t$at t$e legislat%re meant to e4cl%!e
instrumentalities of the national government (rom t$e ta4ing &o,er
o( t$e local government %nits.
Ceb%: as local a government %nit an! a &olitical s%b!ivision it $as
t$e &o,er to im&ose lev' assess an! collect ta4es ,it$in its
9%ris!iction. )%c$ &o,er is g%arantee! b' t$e Constit%tion an!
en$ance! (%rt$er b' t$e LGC. 6$ile it ma' be tr%e t$at %n!er its
C$arter MC*## ,as e4em&t (rom t$e &a'ment o( realit' ta4es t$is
e4em&tion ,as ,it$!ra,n b' )ec. /10 o( t$e LGC. )ec. /10 !oes
not !isting%is$ bet,een GOCCs &er(orming governmental an!
&%rel' &ro&rietar' (%nctions.
*ss%e 1. 6ON MC*## is e4em&t (rom &a'ing ta4es. NO.
#s a general r%le t$e &o,er to ta4 is an inci!ent
o( sovereignt' an! is %nlimite! in its range
ac+no,le!ging in its ver' nat%re no limits so t$at
sec%rit' against its ab%se is to be (o%n! onl' in t$e
res&onsibilit' o( t$e legislat%re ,$ic$ im&oses t$e
ta4 on t$e constit%enc' ,$o are to &a' it.
Nevert$eless e((ective limitations t$ereon ma' be
im&ose! b' t$e &eo&le t$ro%g$ t$eir Constit%tions.
O%r Constit%tion (or instance &rovi!es t$at t$e r%le
o( ta4ation s$all be %ni(orm an! e.%itable an!
Congress s$all evolve a &rogressive s'stem o(
ta4ation.

)o &otent in!ee! is t$e &o,er t$at it ,as
once o&ine! t$at "t$e &o,er to ta4 involves t$e
81
&o,er to !estro'." Keril' ta4ation is a !estr%ctive
&o,er ,$ic$ inter(eres ,it$ t$e &ersonal an!
&ro&ert' (or t$e s%&&ort o( t$e government.
#ccor!ingl' ta4 stat%tes m%st be constr%e! strictl'
against t$e government an! liberall' in (avor o( t$e
ta4&a'er.

B%t since ta4es are ,$at ,e &a' (or
civiliBe! societ' or are t$e li(ebloo! o( t$e nation
t$e la, (ro,ns against e4em&tions (rom ta4ation
an! stat%tes granting ta4 e4em&tions are t$%s
constr%e! strictissimi 0uris against t$e ta4&a'ers
an! liberall' in (avor o( t$e ta4ing a%t$orit'. # claim
o( e4em&tion (rom ta4 &a'ment m%st be clearl'
s$o,n an! base! on lang%age in t$e la, too &lain to
be mista+en. 3lse,ise state! ta4ation is t$e r%le
e4em&tion t$ere(rom is t$e e4ce&tion. Ho,ever i(
t$e grantee o( t$e e4em&tion is a &olitical
s%b!ivision or instr%mentalit' t$e rigi! r%le o(
constr%ction !oes not a&&l' beca%se t$e &ractical
e((ect o( t$e e4em&tion is merel' to re!%ce t$e
amo%nt o( mone' t$at $as to be $an!le! b' t$e
government in t$e co%rse o( its o&erations.

2$e &o,er to ta4 is &rimaril' veste! in t$e
CongressA $o,ever in o%r 9%ris!iction it ma' be
e4ercise! b' local legislative bo!ies no longer
merel' b' virt%e o( a vali! !elegation as be(ore b%t
&%rs%ant to !irect a%t$orit' con(erre! b' )ection C
#rticle J o( t$e Constit%tion.

@n!er t$e latter t$e
e4ercise o( t$e &o,er ma' be s%b9ect to s%c$
g%i!elines an! limitations as t$e Congress ma'
&rovi!e ,$ic$ $o,ever m%st be consistent ,it$ t$e
basic &olic' o( local a%tonom'.
2$ere can be no .%estion t$at %n!er )ection 10 o(
-.#. No. G8C8 t$e &etitioner is e4em&t (rom t$e
&a'ment o( realt' ta4es im&ose! b' t$e National
Government or an' o( its &olitical s%b!ivisions
agencies an! instr%mentalities. Nevert$eless since
ta4ation is t$e r%le an! e4em&tion t$ere(rom t$e
e4ce&tion t$e e4em&tion ma' t$%s be ,it$!ra,n at
t$e &leas%re o( t$e ta4ing a%t$orit'. 2$e onl'
e4ce&tion to t$is r%le is ,$ere t$e e4em&tion ,as
grante! to &rivate &arties base! on material
consi!eration o( a m%t%al nat%re ,$ic$ t$en
becomes contract%al an! is t$%s covere! b' t$e
nonDim&airment cla%se o( t$e Constit%tion.
2$e LGC enacte! &%rs%ant to )ection 1 #rticle J o(
t$e constit%tion &rovi!es (or t$e e4ercise b' local
government %nits o( t$eir &o,er to ta4 t$e sco&e
t$ereo( or its limitations an! t$e e4em&tion (rom
ta4ation.
)ection 111 o( t$e LGC &rescribes t$e common
limitations on t$e ta4ing &o,ers o( local government
%nits. 2$e "ta4es (ees or c$arges" re(erre! to are
"o( an' +in!" $ence t$e' incl%!e all o( t$ese %nless
ot$er,ise &rovi!e! b' t$e LGC. 2$e term "ta4es" is
,ell %n!erstoo! so as to nee! no (%rt$er
elaboration es&eciall' in t$e lig$t o( t$e above
en%meration. 2$e term "(ees" means c$arges (i4e!
b' la, or Or!inance (or t$e reg%lation or ins&ection
o( b%siness activit'

,$ile "c$arges" are &ec%niar'
liabilities s%c$ as rents or (ees against &erson or
&ro&ert'.
#mong t$e "ta4es" en%merate! in t$e LGC is real
&ro&ert' ta4 ,$ic$ is governe! b' )ection /1/.
)ection /10 o( LGC &rovi!es (or t$e e4em&tions
(rom &a'ment o( real &ro&ert' ta4es an! ,it$!ra,s
&revio%s e4em&tions t$ere(rom grante! to nat%ral
an! 9%ri!ical &ersons incl%!ing government o,ne!
an! controlle! cor&orations e4ce&t as &rovi!e!
t$erein. 2$ese e4em&tions are base! on t$e
o,ners$i& c$aracter an! %se o( t$e &ro&ert'. 2$%sA
;a< wnership 3xemptions. 34em&tions (rom real
&ro&ert' ta4es on t$e basis o( o,ners$i& are real
&ro&erties o,ne! b': ;i< t$e -e&%blic ;ii< a &rovince
;iii< a cit' ;iv< a m%nici&alit' ;v< a baranga' an!
;vi< registere! coo&eratives. ;b< Character
3xemptions. 34em&te! (rom real &ro&ert' ta4es on
t$e basis o( t$eir c$aracter are: ;i< c$aritable
instit%tions ;ii< $o%ses an! tem&les o( &ra'er an!
;iii< non &ro(it or religio%s cemeteries. ;c< 4sage
exemptions. 34em&te! (rom real &ro&ert' ta4es on
t$e basis o( t$e act%al !irect an! e4cl%sive use to
,$ic$ t$e' are !evote! are: ;i< all lan!s b%il!ings
an! im&rovements ,$ic$ are act%all' !irecte! an!
e4cl%sivel' %se! (or religio%s c$aritable or
80
e!%cational &%r&oseA ;ii< all mac$ineries an!
e.%i&ment act%all' !irectl' an! e4cl%sivel' %se! or
b' local ,ater !istricts or b' governmentDo,ne! or
controlle! cor&orations engage! in t$e s%&&l' an!
!istrib%tion o( ,ater an!?or generation an!
transmission o( electric &o,erA an! ;iii< all
mac$iner' an! e.%i&ment %se! (or &oll%tion control
an! environmental &rotection.
)ection 181 o( t$e LGC is t$e general &rovision on
,it$!ra,al o( ta4 e4em&tion &rivileges. On t$e ot$er
$an! t$e LGC a%t$oriBes local government %nits to
grant ta4 e4em&tion &rivileges.
-ea!ing toget$er )ection 111 /1/ an! /10 o( t$e
LGC ,e concl%!e t$at as a general r%le as lai!
!o,n in )ection 111 t$e ta4ing &o,ers o( local
government %nits cannot e4ten! to t$e lev' o( inter
alia "ta4es (ees an! c$arges o( an' +in! o( t$e
National Government its agencies an!
instr%mentalties an! local government %nits"A
$o,ever &%rs%ant to )ection /1/ &rovinces cities
m%nici&alities in t$e Metro&olitan Manila #rea ma'
im&ose t$e real &ro&ert' ta4 e4ce&t on inter alia
"real &ro&ert' o,ne! b' t$e -e&%blic o( t$e
=$ili&&ines or an' o( its &olitical s%b!ivisions e4ce&t
,$en t$e bene(icial %se! t$ereo( $as been grante!
(or consi!eration or ot$er,ise to a ta4able &erson"
as &rovi!e! in item ;a< o( t$e (irst &aragra&$ o(
)ection /10.
#s to ta4 e4em&tions or incentives grante! to or
&resentl' en9o'e! b' nat%ral or 9%ri!ical &ersons
incl%!ing governmentDo,ne! an! controlle!
cor&orations )ection 181 o( t$e LGC &rescribes t$e
general r%le vi'. t$e' are withdrawn %&on t$e
e((ectivit' o( t$e LGC e4ce&t %&on t$e e((ectivit' o(
t$e LGC except t$ose grante! to local ,ater
!istricts coo&eratives !%l' registere! %n!er -.#. No.
G818 non stoc+ an! nonD&ro(it $os&itals an!
e!%cational instit%tions an! %nless ot$er,ise
&rovi!e! in t$e LGC. 2$e latter &roviso co%l! re(er to
)ection /10 ,$ic$ en%merates t$e &ro&erties
e4em&t (rom real &ro&ert' ta4. B%t t$e last
&aragra&$ o( )ection /10 (%rt$er .%ali(ies t$e
retention o( t$e e4em&tion in so (ar as t$e real
&ro&ert' ta4es are concerne! b' limiting t$e
retention onl' to t$ose en%merate! t$ereDinA all
ot$ers not incl%!e! in t$e en%meration lost t$e
&rivilege %&on t$e e((ectivit' o( t$e LGC. Moreover
even as t$e real &ro&ert' is o,ne! b' t$e -e&%blic
o( t$e =$ili&&ines or an' o( its &olitical s%b!ivisions
covere! b' item ;a< o( t$e (irst &aragra&$ o( )ection
/10 t$e e4em&tion is ,it$!ra,n i( t$e bene(icial
%se o( s%c$ &ro&ert' $as been grante! to ta4able
&erson (or consi!eration or ot$er,ise. )ince t$e last
&aragra&$ o( )ection /10 %ne.%ivocall' ,it$!re,
%&on t$e e((ectivit' o( t$e LGC e4em&tions (rom
real &ro&ert' ta4es grante! to nat%ral or 9%ri!ical
&ersons incl%!ing governmentDo,ne! or controlle!
cor&orations e4ce&t as &rovi!e! in t$e sai! section
an! t$e &etitioner is %n!o%bte!l' a governmentD
o,ne! cor&oration it necessaril' (ollo,s t$at its
e4em&tion (rom s%c$ ta4 grante! it in )ection 10 o(
its c$arter -.#. No. G8C8 $as been ,it$!ra,n. #n'
claim to t$e contrar' can onl' be 9%sti(ie! i( t$e
&etitioner can see+ re(%ge %n!er an' o( t$e
e4ce&tions &rovi!e! in )ection /10 b%t not %n!er
)ection 111 as it no, asserts since as s$o,n
above t$e sai! section is .%ali(ie! b' )ection /1/
an! /10. *n s$ort t$e &etitioner can no longer
invo+e t$e general r%le in )ection 111 t$at t$e
ta4ing &o,ers o( t$e local government %nits cannot
e4ten! to t$e lev' o(: ;o< ta4es (ees or c$arges o(
an' +in! on t$e National Government its agencies
or instr%mentalities an! local government %nits.
*n lig$t o( t$e &etitionerHs t$eor' t$at it is an
"instr%mentalit' o( t$e Government" it co%l! onl'
be ,it$in be (irst item o( t$e (irst &aragra&$ o( t$e
section b' e4&an!ing t$e sco&e o( t$e terms
-e&%blic o( t$e =$ili&&ines" to embrace . . . . . .
"instr%mentalities" an! "agencies" or e4&e!ienc' ,e
.%ote: ;a< real &ro&ert' o,ne! b' t$e -e&%blic o(
t$e =$ili&&ines or an' o( t$e =$ili&&ines or an' o(
its &olitical s%b!ivisions e4ce&t ,$en t$e bene(icial
%se t$ereo( $as been grante! (or consi!eration or
ot$er,ise to a ta4able &erson. 2$is vie, !oes not
8C
&ers%a!e %s. *n t$e (irst &lace t$e &etitionerHs claim
t$at it is an instr%mentalit' o( t$e Government is
base! on )ection 111;o< ,$ic$ e4&ressl' mentions
t$e ,or! "instr%mentalities"A an! in t$e secon!
&lace it (ails to consi!er t$e (act t$at t$e legislat%re
%se! t$e &$rase "National Government its agencies
an! instr%mentalities" "in )ection 111;o<b%t onl'
t$e &$rase "-e&%blic o( t$e =$ili&&ines or an' o( its
&olitical s%b!ivision "in )ection /10;a<.
2$e terms "-e&%blic o( t$e =$ili&&ines" an!
"National Government" are not interc$angeable. 2$e
(ormer is boar!er an! s'non'mo%s ,it$
"Government o( t$e -e&%blic o( t$e =$ili&&ines"
,$ic$ t$e #!ministrative Co!e o( t$e 1887 !e(ines
as t$e "cor&orate governmental entit' t$o%g$ ,$ic$
t$e (%nctions o( t$e government are e4ercise!
t$ro%g$ at t$e =$ili&&ines incl%!ing saves as t$e
contrar' a&&ears (rom t$e conte4t t$e vario%s arms
t$ro%g$ ,$ic$ &olitical a%t$orit' is ma!e e((ective in
t$e =$ili&&ines ,$et$er &ertaining to t$e
a%tonomo%s reason t$e &rovincial cit' m%nici&al
or baranga' s%b!ivision or ot$er (orms o( local
government."

2$ese a%tonomo%s regions &rovincial
cit' m%nici&al or baranga' s%b!ivisions" are t$e
&olitical s%b!ivision.

On t$e ot$er $an! "National Government" re(ers "to
t$e entire mac$iner' o( t$e central government as
!isting%is$e! (rom t$e !i((erent (orms o( local
Governments."

2$e National Government t$en is
com&ose! o( t$e t$ree great !e&artments t$e
e4ec%tive t$e legislative an! t$e 9%!icial.

#n "agenc'" o( t$e Government re(ers to "an' o( t$e
vario%s %nits o( t$e Government incl%!ing a
!e&artment b%rea% o((ice instr%mentalit' or
governmentDo,ne! or controlle! cor&oration or a
local government or a !istinct %nit t$ereinA"

,$ile
an "instr%mentalit'" re(ers to "an' agenc' o( t$e
National Government not integrate! ,it$in t$e
!e&artment (rame,or+ veste! ,it$ s&ecial
(%nctions or 9%ris!iction b' la, en!o,e! ,it$ some
i( not all cor&orate &o,ers a!ministering s&ecial
(%n!s an! en9o'ing o&erational a%tonom'A %s%all'
t$ro%g$ a c$arter. 2$is term incl%!es reg%lator'
agencies c$artere! instit%tions an! governmentD
o,ne! an! controlle! cor&orations".

*( )ection /10;a< inten!e! to e4ten! t$e e4ce&tion
t$erein to t$e ,it$!ra,al o( t$e e4em&tion (rom
&a'ment o( real &ro&ert' ta4es %n!er t$e last
sentence o( t$e sai! section to t$e agencies an!
instr%mentalities o( t$e National Government
mentione! in )ection 111;o< t$en it s$o%l! $ave
restate! t$e ,or!ing o( t$e latter. :et it !i! not
Moreover t$at Congress !i! not ,is$ to e4&an! t$e
sco&e o( t$e e4em&tion in )ection /10;a< to incl%!e
real &ro&ert' o,ne! b' ot$er instr%mentalities or
agencies o( t$e government incl%!ing governmentD
o,ne! an! controlle! cor&orations is (%rt$er borne
o%t b' t$e (act t$at t$e so%rce o( t$is e4em&tion is
)ection 05;a< o( =.D. No. G0G ot$er,ise +no,n as
t$e -eal =ro&ert' 2a4 Co!e ,$ic$ rea!s:
)ec 05. 34em&tion (rom -eal =ro&ert' 2a4. S 2$e
e4em&tion s$all be as (ollo,s: ;a< -eal &ro&ert'
o,ne! b' t$e -e&%blic o( t$e =$ili&&ines or an' o( its
&olitical s%b!ivisions an! an' governmentDo,ne! or
controlle! cor&orations so e4em&t b' is c$arter:
#rovided% however t$at t$is e4em&tion s$all not
a&&l' to real &ro&ert' o( t$e above mentione!
entities t$e bene(icial %se o( ,$ic$ $as been grante!
(or consi!eration or ot$er,ise to a ta4able &erson.
Note t$at as a re&ro!%ce! in )ection /10;a< t$e
&$rase "an! an' governmentDo,ne! or controlle!
cor&oration so e4em&t b' its c$arter" ,as e4cl%!e!.
2$e 9%sti(ication (or t$is restricte! e4em&tion in
)ection /10;a< seems obvio%s: to limit (%rt$er ta4
e4em&tion &rivileges es&eciall' in lig$t o( t$e
general &rovision on ,it$!ra,al o( e4em&tion (rom
&a'ment o( real &ro&ert' ta4es in t$e last &aragra&$
o( &ro&ert' ta4es in t$e last &aragra&$ o( )ection
/10. 2$ese &olic' consi!erations are consistent ,it$
t$e )tate &olic' to ens%re a%tonom' to local
governments
44
an! t$e ob9ective o( t$e LGC t$at
t$e' en9o' gen%ine an! meaning(%l local a%tonom'
to enable t$em to attain t$eir (%llest !evelo&ment
as sel(Dreliant comm%nities an! ma+e t$em e((ective
8G
&artners in t$e attainment o( national goals.

2$e
&o,er to ta4 is t$e most e((ective instr%ment to
raise nee!e! reven%es to (inance an! s%&&ort
m'ria! activities o( local government %nits (or t$e
!eliver' o( basic services essential to t$e &romotion
o( t$e general ,el(are an! t$e en$ancement o(
&eace &rogress an! &ros&erit' o( t$e &eo&le. *t
ma' also be relevant to recall t$at t$e original
reasons (or t$e ,it$!ra,al o( ta4 e4em&tion
&rivileges grante! to governmentDo,ne! an!
controlle! cor&orations an! all ot$er %nits o(
government ,ere t$at s%c$ &rivilege res%lte! in
serio%s ta4 base erosion an! !istortions in t$e ta4
treatment o( similarl' sit%ate! enter&rises an!
t$ere ,as a nee! (or t$is entities to s$are in t$e
re.%irements o( t$e !evelo&ment (iscal or
ot$er,ise b' &a'ing t$e ta4es an! ot$er c$arges
!%e (rom t$em.

(ecretar# o! &inance v. )lare
Facts: Cabal%na (aile! to &a' lan! ta4es. # brea+!o,n o( t$e
com&%tation o( t$e !elin.%ent ta4es an! &enalties on $is lots an!
resi!ential $o%se as re(lecte! in t$e vario%s recei&ts iss%e! b' t$e
Cit' 2reas%rerHs O((ice o( *loilo Cit' s$o,s t$at more t$an t,ent'D
(o%r &ercent ;/0Y< o( t$e !elin.%ent ta4es ,ere c$arge! an!
collecte! b' ,a' o( &enalties. Cabal%na &ai! $is lan! ta4es an! t$e
corres&on!ing recei&ts ,ere iss%e! to $im b' t$e Cit' 2reas%rerHs
O((ice ,it$ t$e notation "&ai! %n!er &rotest." Cabal%na (ile! a
(ormal letter o( &rotest ,it$ t$e Cit' 2reas%rer o( *loilo Cit' ,$erein
$e conten!s t$at t$e Cit' 2reas%rerHs com&%tation o( &enalties ,as
erroneo%s since t$e rate o( &enalt' a&&lie! e4cee!e! t,ent'D(o%r
&ercent ;/0Y< in contravention o( )ection GG o( =.D. No. 0G0
ot$er,ise +no,n as t$e -eal =ro&ert' 2a4 Co!e as amen!e!. *n
res&onse $o,ever #ssistant Cit' 2reas%rer 2%lio (or an! in be$al(
o( t$e Cit' 2reas%rer o( *loilo t%rne! !o,n &rivate res&on!entHs
&rotest citing )ec. 0;c< o( 7oint #ssessment -eg%lations No. 1D8C
an! Local 2reas%r' -eg%lations No. /D8C o( t$e t$en Ministr' ;no,
De&artment< o( Finance. ,$ic$ rea!s: )ec. 0. Com&%tation o(
=enalties on Delin.%ent -eal =ro&ert' 2a4es. X ;a< @nless
con!one! ,$oll' or &artiall' in a !%l' a&&rove! resol%tion o( t$e
Local )angg%nian !elin.%ent real &ro&ert' ta4es s$all be s%b9ect
to &enalt' at t$e rate o( t,o &er cent ;/Y< (or ever' mont$ o(
!elin.%enc' &rovi!e! t$at t$e total &enalt' (or one ta4 'ear s$all
not e4cee! t,ent'D(o%r &ercent ;/0Y<. ;b< Fail%re to &a' on time at
least t$e (irst .%arter installment o( t$e real &ro&ert' ta4 s$all
constit%te a ,aiver on t$e &art o( t$e &ro&ert' o,ner or
a!ministrator to avail o( t$e &rivilege grante! b' la, (or $im to &a'
,it$o%t &enalt' $is ann%al realt' ta4 obligation in (o%r ;0< e.%al
installment on or be(ore t$e en! o( ever' .%arter o( t$e ta4 'ear.
#ccor!ingl' i( t$e &ortion o( t$e real &ro&ert' ta4 !%e (or t$e (irst
.%arter o( ta4 'ear is not &ai! on or be(ore t$e t$irt'D(irst !a' o(
Marc$ o( t$e same 'ear t$e &enalt' s$all be rec+one! (rom t$e
(irst !a' o( 7an%ar' at t$e rate o( t,o &er cent ;/Y< (or ever' mont$
o( !elin.%enc' on t$e basis o( t$e total amo%nt !%e (or t$e entire
'ear an! not onl' on t$e amo%nt !%e (or t$e sai! (irst .%arter o(
t$e ta4 'ear. ;c< 2$e &enalt' o( t,o &ercent ;/Y< &er mont$ o(
!elin.%enc' or t,ent'D(o%r &ercent ;/0Y< &er ann%m as t$e case
ma' be s$all contin%e to be im&ose! on t$e %n&ai! ta4 (rom t$e
time t$e !elin.%enc' ,as inc%rre! %& to t$e time t$at it is &ai! (or
in (%ll.
Cabal%na (ile! a =etition (or Declarator' -elie( ,it$ Damages on 5G
7%l' 1881 be(ore t$e sala o( res&on!ent 7%!ge assailing 7oint
#ssessment -eg%lations No. 1D8C an! Local 2reas%r' -eg%lations
No. /D8C ,$ic$ accor!ing to $im (lo%te! )ection GG o( =.D. No. 0G0
,$ic$ (i4e! t$e ma4im%m &enalt' (or !elin.%enc' in t$e &a'ment
o( real estate ta4es at /0Y o( t$e !elin.%ent ta4.
-2C: )ection 0;c< o( 7oint #ssessment -eg%lation No. 1D8C an! Local
2reas%r' -eg%lation No. /D8C n%ll an! voi!. =enalt' t$at s$o%l! be
im&ose! (or !elin.%enc' in t$e &a'ment o( real &ro&ert' ta4es
s$o%l! be t,o &er cent%m on t$e amo%nt o( t$e !elin.%ent ta4 (or
eac$ mont$ o( !elin.%enc' or (raction t$ereo( %ntil t$e !elin.%ent
ta4 is (%ll' &ai! b%t in no case s$all t$e total &enalt' e4cee!
t,ent'D(o%r &er cent%m o( t$e !elin.%ent ta4 as &rovi!e! (or in
)ection GG o( =.D. 0G0 ot$er,ise +no,n as t$e -eal =ro&ert' 2a4
Co!e.

*ss%e: 6ON 7oint #ssessment -eg%lations No. 1D8C an! Local
2reas%r' -eg%lations No. /D8C are vali!. NO.
2$e s%b9ect -eg%lations m%st be str%c+ !o,n (or
being re&%gnant to )ection GG o( =.D. No. 0G0 or t$e
-eal =ro&ert' 2a4 Co!e ,$ic$ &rovi!es: E2$at in no
case s$all t$e total &enalt' e4cee! t,ent'D(o%r &er
cent%m o( t$e !elin.%ent ta4. 2$e rate o( &enalt' (or
87
ta4 !elin.%enc' (i4e! $erein s$all be %ni(orml'
a&&lie! in all &rovinces an! cities.F
@&on t$e ot$er $an! )ection 0;c< o( t$e c$allenge!
7oint #ssessment -eg%lations No. 1D8C an! Local
2reas%r' -eg%lations No. /D8C iss%e! b' res&on!ent
)ecretar' ;(ormerl' Minister< o( Finance &rovi!es
t$at "t$e &enalt' o( t,o &ercent ;/Y< &er mont$ o(
!elin.%enc' or t,ent'D(o%r &ercent ;/0Y< &er
ann%m as t$e case ma' be s$all contin%e to be
im&ose! on t$e %n&ai! ta4 (rom t$e time t$e
!elin.%enc' ,as inc%rre! %& to t$e time t$at t$e
!elin.%enc' is &ai! (or in (%ll." #s a!e&tl' observe!
b' t$e trial co%rt t$e &enalt' im&ose! %n!er t$e
assaile! -eg%lations $as no limit inasm%c$ as t$e
/0Y &enalt' &er ann%m s$all be contin%o%sl'
im&ose! on t$e %n&ai! ta4 %ntil it is &ai! (or in (%ll
%nli+e t$at im&ose! %n!er )ection GG o( t$e -eal
=ro&ert' 2a4 Co!e ,$ere t$e total &enalt' is limite!
onl' to t,ent'D(o%r &ercent o( t$e !elin.%ent ta4.
Q 2$e secretar' anc$ors $is claim on 3O71 "2$e Minister o( Finance
s$all &rom%lgate t$e necessar' r%les an! reg%lations to im&lement
t$is 34ec%tive Or!er." 3.O. No. 71 !i! not to%c$ at all on t$e to&ic
o( amen!ment o( rates o( !elin.%ent ta4es or t$e amen!ment o(
rates o( &enalt' on !elin.%ent ta4es. Neit$er !i! 3.O. No. 1518
!irectl' or in!irectl' vest %&on t$e De&artment o( Finance t$e rig$t
to (i!!le ,it$ t$e rates o( &enalt' to be assesse! on !elin.%enc'
ta4es as containe! in t$e -eal =ro&ert' 2a4 Co!e.
Des&ite t$e &rom%lgation o( 3.O. No. 71 =.D. No. 0G0 in general
an! )ection GG in &artic%lar remaine! to be goo! la,. NO re&eal b'
im&lication itcabO #ss%ming arg%menti t$at 3.O. No. 71 $as
a%t$oriBe! t$e &etitioner to iss%e t$e ob9ecte! -eg%lations s%c$
con(erment o( &o,ers is voi! (or being re&%gnant to t$e ,ellD
encr%ste! !octrine in &olitical la, t$at t$e &o,er o( ta4ation is
generall' veste! ,it$ t$e legislat%re. 2$e &o,er !elegate! to t$e
e4ec%tive branc$ in t$is case t$e Ministr' o( Finance to la' !o,n
im&lementing r%les m%st nevert$eless be germane to t$e general
la, it see+s to a&&l'. 2$e im&lementing r%les cannot a!! to or
!etract (rom t$e &rovisions o( t$e la, it is !esigne! to im&lement.
Q t$e (act t$at &rivate res&on!ent Cabal%na ,as res&onsible (or t$e
iss%ance an! im&lementation o( -egional O((ice Memoran!%m
Circ%lar No. 50D88 ,$ic$ im&lemente! 7oint #ssessment
-eg%lations No. 1D8C an! Local 2reas%r' -eg%lations No. /D8C !oes
not &%t $im in esto&&el (rom see+ing t$e n%lli(ication o( sai!
-eg%lations at t$is &oint.

Benguet Corporation v. Central Boar o! Assessment
Appeals
Facts: BC see+s to ann%l an! set asi!e t$e Decision o( t$e CB## o(
Ma' /8 1881 as ,ell as t$e -esol%tion o( 7%l' 1 1881 !en'ing its
motion (or reconsi!eration ,$ic$ a((irme! t$e !ecision o(
res&on!ent Local Boar! o( #ssessment #&&eals o( t$e =rovince o(
Beng%et !eclaring as vali! t$e ta4 assessments ma!e b' t$e
M%nici&al #ssessor o( *togon Beng%et on t$e b%n+$o%ses o(
&etitioner occ%&ie! as !,elling b' its ran+ an! (ile em&lo'ees
base! on 2a4 Declarations Nos. 8071 an! 150C0. 2$e =rovincial
#ssessor o( Beng%et t$ro%g$ t$e M%nici&al #ssessor o( *togon
assesse! real &ro&ert' ta4 on t$e b%n+$o%ses o( &etitioner Beng%et
Cor&oration occ%&ie! (or resi!ential &%r&oses b' its ran+ an! (ile
em&lo'ees %n!er 2a4 Declarations Nos. 8071 ;e((ective 188C< an!
150C0 ;e((ective 188G<. #ccor!ing to t$e =rovincial #ssessor t$e
ta4 e4em&tion o( b%n+$o%ses %n!er )ec. 1 ;a< =.D. 70C
/

;LiberaliBing t$e Financing an! Cre!it 2erms (or Lo, Cost Ho%sing
=ro9ects o( Domestic Cor&orations an! =artners$i&s< ,as
,it$!ra,n b' =.D. 18CC
1
;6it$!ra,ing )%b9ect to Certain
Con!itions t$e D%t' an! 2a4 =rivileges Grante! to =rivate B%siness
3nter&rises an!?or =ersons 3ngage! in #n' 3conomic #ctivit' an!
Ot$er =%r&oses<. =etitioner a&&eale! t$e assessment on 2a4
/ ")ection 1. =%rs%ant to t$e above incentive s%c$ !omestic cor&orations an!
&artners$i&s s$all en9o' ta4 e4em&tion on: ;a< real estate ta4es on t$e
im&rovements ,$ic$ ,ill be %se! e4cl%sivel' (or $o%sing t$eir em&lo'ees an!
,or+ers . . ."
1 ")ection 1. 2$e &rovisions o( an' s&ecial or general la, to t$e contrar'
not,it$stan!ing all e4em&tions (rom or an' &re(erential treatment in t$e &a'ment
o( !%ties ta4es (ees im&osts an! ot$er c$arges $ereto(ore grante! to &rivate
b%siness enter&rises an!?or &ersons engage! in an' economic activit' are
$ereb' ,it$!ra,n e4ce&t t$ose en9o'e! b' t$e (ollo,ing: . . . ;e<
2$ose t$at ,ill be a&&rove! b' t$e =resi!ent o( t$e =$ili&&ines %&on t$e
recommen!ation o( t$e Minister o( Finance"
88
Declarations Nos. 8071 an! 150C0 to t$e Local Boar! o(
#ssessment #&&eals ;LB##< o( t$e =rovince o( Beng%et !oc+ete!
as LB## Cases Nos. 0/ an! 01 res&ectivel'. Bot$ ,ere $ear!
9ointl'. Mean,$ile t$e &arties agree! to s%s&en! $earings in LB##
Cases Nos. 0/ an! 01 to a,ait t$e o%tcome o( anot$er case LB##
Case No. 01 covering 2a4 Declaration No. 1C10 ;e((ective 1880<
,$ic$ involve! t$e same &arties an! iss%e %ntil t$e a&&eal ,as
!eci!e! b' t$e Central Boar! o( #ssessment #&&eals ;CB##<. On
7%l' 1C 188G CB## $an!e! !o,n its !ecision in LB## Case No. 01
$ol!ing t$at t$e b%il!ings o( &etitioner %se! as !,ellings b' its ran+
an! (ile em&lo'ees ,ere e4em&t (rom real &ro&ert' ta4 &%rs%ant to
=.D. 70C. 2$erea(ter t$e &rocee!ings in LB## Cases Nos. 0/ an!
01 &rocee!e! a(ter ,$ic$ a !ecision ,as ren!ere! a((irming t$e
ta4abilit' o( s%b9ect &ro&ert' o( &etitioner. On a&&eal CB##
s%staine! t$e !ecision $ol!ing t$at t$e realt' ta4 e4em&tion %n!er
=.D. 70C ,as ,it$!ra,n b' =.D. 18CC an! 3.O. 81 so t$at
&etitioner s$o%l! $ave a&&lie! (or restoration o( t$e e4em&tion ,it$
t$e Fiscal *ncentives -evie, Boar! ;F*-B< 2$e !ecision o( CB##
clari(ie! t$at Case No. 01 ,as !i((erent beca%se it ,as e((ective
&rior to 188C $ence ,as not covere! b' =.D. 18CC nor b' 3.O. 81.
=etitioner move! (or reconsi!eration b%t ,as !enie! ,it$ CB##
$ol!ing t$at &etitionerHs "classi(ication" o( =.D. 70C is %navailing
beca%se =.D. 18CC an! 3.O. 81 !o not !iscriminate against t$e soD
calle! "social stat%tes". Hence t$is &etition.
)C: s$o%l! be rea! in connection ,it$ Ministr' Or!er No. 18D80
)ec. 1 ;!< o( t$e t$en Ministr' o( Finance ,$ic$ too+ e((ect
October 1C 1880 states: ")ection 1. 2$e ,it$!ra,al o( e4em&tions
(rom or an' &re(erential treatment in t$e &a'ment o( !%ties
ta4es (ees im&osts an! ot$er c$arges as &rovi!e! (or %n!er
=resi!ential Decree No. 18CC !oes not a&&l' to e4em&tions or
&re(erential treatment embo!ie! in t$e (ollo,ing la,s: . . . ;!< 2$e
-eal =ro&ert' 2a4 Co!e . . ."
34ec%tive Or!er No. 81 &rom%lgate! December 17 188G is also to
t$e same e((ect. Bot$ =.D. 18CC an! F.O. 81 o&erate as ,$olesale
,it$!ra,al o( ta4 incentives grante! to &rivate entities so t$at t$e
government ma' reDe4amine e4isting ta4 e4em&tions an! restore
t$ro%g$ t$e "revie, mec$anism" o( t$e Fiscal *ncentives -evie,
Boar! onl' t$ose t$at are consistent ,it$ !eclare! economic &olic'.
2$%s ,ise t$e c$ie( reven%e so%rce o( t$e government ,ill not be
greatl' i( not %nnecessaril' ero!e! since ta4 e4em&tions t$at
,ere grante! on &iecemeal basis an! ,$ic$ $ave lost relevance to
e4isting &rograms are eliminate!.
*ss%es: 1. 6ON res&on!ent #ssessors ma' vali!l' assess real
&ro&ert' ta4 on t$e &ro&erties o( &etitioner consi!ering t$e
&roscri&tion in 2$e Local 2a4 Co!e ;=.D /11< an! t$e Mineral
-eso%rces Develo&ment Decree o( 1870 ;=.D. 0G1< against
im&osition o( ta4es on mines b' local governments. :3).
On t$e (irst iss%e &etitioner conten!s t$at local
government %nits are ,it$o%t an' a%t$orit' to lev'
realt' ta4es on mines &%rs%ant to )ec. C/ o( =.D.
0G1 ,$ic$ states: )ec. C/. =o,er to Lev' 2a4es on
Mines Mining O&erations an! Mineral =ro!%cts. #n'
la, to t$e contrar' not,it$stan!ing no &rovince
cit' m%nici&alit' barrio or m%nici&al !istrict s$all
lev' an! collect ta4es (ees rentals ro'alties or
c$arges o( an' +in! ,$atsoever on mines mining
claims mineral &ro!%cts or an' o&eration &rocess
or activit' connecte! t$ere,it$ an! )ec. C ;m< o(
2$e Local 2a4 Co!e as amen!e! b' =.D. 0/G
;reiterate! in )ecs. 17 U!V an! // UcV same Co!e<
,$ic$ &rovi!es: )ec. C. Common limitations on t$e
ta4ing &o,ers o( local governments. 2$e e4ercise o(
t$e ta4ing &o,ers o( &rovinces cities m%nici&alities
an! barrios s$all not e4ten! to t$e im&osition o( t$e
(ollo,ing: . . . ;m< 2a4es on mines mining
o&erationsA an! minerals mineral &ro!%cts an!
t$eir b'D&ro!%cts ,$en sol! !omesticall' b' t$e
o&erator.
2$e )olicitor General observes t$at t$e &etitioner is
esto&&e! (rom raising t$e .%estion o( lac+ o(
a%t$orit' to iss%e t$e c$allenge! assessments
inasm%c$ as it ,as never raise! be(ore $ence not
&asse! %&on b' t$e m%nici&al an! &rovincial
assessors LB## an! CB##. 2$is observation is ,ell
ta+en. 2$e r%le t$at t$e iss%e o( 9%ris!iction over
s%b9ect matter ma' be raise! an'time even !%ring
a&&eal $as been .%ali(ie! ,$ere its a&&lication
res%lts in moc+er' o( t$e tenets o( (air &la' as in
t$is case ,$en t$e iss%e co%l! $ave been !is&ose!
o( earlier an! more a%t$oritativel' b' an' o( t$e
res&on!ents ,$o are s%&&ose! to be e4&erts in t$e
(iel! o( realt' ta4 assessment. #s 6e $el! in )%areB
v. Co%rt o( #&&eals: . . . *t is settle! t$at an'
88
!ecision ren!ere!. ,it$o%t 9%ris!iction is a total
n%llit' an! ma' be str%c+ !o,n at an' time even on
a&&eal be(ore t$is Co%rt. 2$e onl' e4ce&tion is
,$ere t$e &art' raising t$e iss%e is barre! b'
esto&&el.
2i9am v. )ibong$ano': 6$ile &etitioner co%l! $ave
&revente! t$e trial co%rt (rom e4ercising 9%ris!iction
over t$e case b' seasonabl' ta+ing e4ce&tion
t$ereto t$e' instea! involve! t$e ver' same
9%ris!iction b' (iling an ans,er an! see+ing
a((irmative relie( (rom it. 6$at is more t$e'
&artici&ate! in t$e trial o( t$e case b' crossD
e4amining res&on!ent. @&on t$e &remises
&etitioner cannot no, be allo,e! belate!l' to a!o&t
an inconsistent &ost%re b' attac+ing t$e 9%ris!iction
o( t$e co%rt to ,$ic$ t$e' $a! s%bmitte!
t$emselves vol%ntaril'
#g%inal!o *n!%stries Cor&oration v. Commissioner o(
*nternal -even%e an! t$e Co%rt o( 2a4 #&&eals:"2o
allo, a litigant to ass%me a !i((erent &ost%re ,$en
$e comes be(ore t$e co%rt an! c$allenge t$e
&osition $e $a! acce&te! at t$e a!ministrative level
,o%l! be to sanction a &roce!%re ,$ereb' t$e co%rt
,$ic$ is s%&&ose! to revie, a!ministrative
!eterminations ,o%l! not revie, b%t !etermine an!
!eci!e (or t$e (irst time a .%estion not raise! at t$e
a!ministrative (or%m. 2$is cannot be &ermitte! (or
t$e same reason t$at %n!erlies t$e re.%irement o(
&rior e4$a%stion o( a!ministrative reme!ies to give
a!ministrative a%t$orities t$e &rior o&&ort%nit' to
!eci!e controversies ,it$in its com&etence an! in
m%c$ t$e same ,a' t$at on t$e 9%!icial level
iss%es not raise! in t$e lo,er co%rt cannot be raise!
(or t$e (irst time on a&&eal."
Besi!es t$e s&ecial civil action o( certiorari is
available to &ass %&on t$e !eterminations o(
a!ministrative bo!ies ,$ere &atent !enial o( !%e
&rocess is allege! as a conse.%ence o( grave ab%se
o( !iscretion or lac+ o( 9%ris!iction or .%estion o(
la, is raise! an! no a&&eal is available. *n t$is case
&etitioner ma' not com&lain o( !enial o( !%e &rocess
since it $a! eno%g$ o&&ort%nit' b%t o&te! not to
raise t$e iss%e o( 9%ris!iction in an' o( t$e
a!ministrative bo!ies to ,$ic$ t$e case ma' $ave
been bro%g$t.
BC: realt' ta4es are local ta4es beca%se t$e' are
levie! b' local government %nitsA citing )ec. 18 o(
=.D. 0G0 ,$ic$ &rovi!es: )ec. 18. -ates o( Lev'.
2$e &rovincial cit' or m%nici&al boar! or co%ncil
s$all (i4 a %ni(orm rate o( real &ro&ert' ta4
a&&licable to t$eir res&ective localities . . .
6$ile local government %nits are c$arge! ,it$ (i4ing
t$e rate o( real &ro&ert' ta4es it !oes not
necessaril' (ollo, (rom t$at a%t$orit' t$e
!etermination o( ,$et$er or not to im&ose t$e ta4.
*n (act local governments $ave no alternative b%t to
collect ta4es as man!ate! in )ec. 18 o( t$e -eal
=ro&ert' 2a4 Co!e ,$ic$ states: )ec. 18. *nci!ence
o( -eal =ro&ert' 2a4. 2$ere s$all be levie! assesse!
an! collecte! in all &rovinces cities an!
m%nici&alities an ann%al a! valorem ta4 on real
&ro&ert' s%c$ as lan! b%il!ings mac$iner' an!
ot$er im&rovements a((i4e! or attac$e! to real
&ro&ert' not $ereina(ter s&eci(icall' e4em&te!."
*t is t$%s clear (rom t$e (oregoing t$at it is t$e
national government e4&ressing itsel( t$ro%g$ t$e
legislative branc$ t$at levies t$e real &ro&ert' ta4.
Conse.%entl' ,$en local governments are re.%ire!
to (i4 t$e rates t$e' are merel' constit%te! as
agents o( t$e national government in t$e
en(orcement o( t$e -eal =ro&ert' 2a4 Co!e. 2$e
!elegation o( ta4ing &o,er is not even involve! $ere
beca%se t$e national government $as alrea!'
im&ose! realt' ta4 in )ec. 18 aboveD.%ote! leaving
onl' t$e en(orcement to be !one b' local
governments.
2$e c$allenge o( &etitioner against t$e a&&licabilit'
o( Meralco )ec%rities *n!%strial Cor&oration v.
Central Boar! o( #ssessment #&&eals et al. 1 is
%navailing absent an' cogent reason to overt%rn
t$e same. 2$%s "Meralco )ec%rities arg%es t$at t$e
realt' ta4 is a local ta4 or lev' an! not a ta4 o(
general a&&lication. 2$is arg%ment is %ntenable
beca%se t$e realt' ta4 $as al,a's been im&ose! b'
85
t$e la,ma+ing bo!' an! later b' t$e =resi!ent o(
t$e =$ili&&ines in t$e e4ercise o( $is la,ma+ing
&o,ers as s$o,n in )ections 10/ et se.. o( t$e
-evise! #!ministrative Co!e #ct No. 188C
Common,ealt$ #ct No 075 an! =resi!ential Decree
No. 0G0. "2$e realt' ta4 is en(orce! t$ro%g$o%t t$e
=$ili&&ines an! not merel' in a &artic%lar
m%nici&alit' or cit' b%t t$e &rocee!s o( t$e ta4
accr%e to t$e &rovince cit' m%nici&alit' an! barrio
,$ere t$e realt' ta4e! is sit%ate! ;)ec. 8G =.D. No.
0G0<. *n contrast a local ta4 is im&ose! b' t$e
m%nici&al or cit' co%ncil b' virt%e o( t$e Local 2a4
Co!e =resi!ential Decree No. /11 ,$ic$ too+ e((ect
on 7%l' 1 1871 ;G8 O.G. G187<."
Conse.%entl' t$e &rovisions o( )ec. C/ o( t$e
Mineral -eso%rces Develo&ment Decree o( 1870
;=.D. 0G1< an! )ecs. C ;m< 17 ;!< an! // ;c< o( 2$e
Local 2a4 Co!e ;=.D. /11< cite! b' &etitioner are
mere limitations on t$e ta4ing &o,er o( local
government %nits t$e' are not &ertinent to t$e
iss%e be(ore @s an! t$ere(ore cannot an! s$o%l!
not a((ect t$e im&osition o( real &ro&ert' ta4 b' t$e
national government.
/. 6ON t$e real ta4 e4em&tion grante! %n!er =.D. 70C
;&rom%lgate! 7%l' 1C 187C< ,as ,it$!ra,n b' =.D. 18CC
;too+ e((ect October 1C 1880< an! 3.O. 81. :3).
Co%rt $el! t$at it $as no reco%rse b%t to a&&l' t$e
e4&ress &rovision o( =.D. No. 18CC an! r%le in (avor
o( t$e ,it$!ra,al o( t$e real &ro&ert' ta4 e4em&tion
&rovi!e! %n!er =.D. No. 70C.
#s regar!s t$e secon! iss%e &etitioner ,$ic$
claims t$at 3.O. 81 !oes not re&eal social stat%tes
li+e =.D. 70C in t$e same breat$ ta+es re(%ge in
)ec. 1 ;e< o( t$e same 3.O. 81 to ,it: )ection 1. 2$e
&rovisions o( an' general or s&ecial la, to t$e
contrar' not,it$stan!ing all ta4 an! !%t' incentives
grante! to government an! &rivate entities are
$ereb' ,it$!ra,n e4ce&t: . . . ;e< t$ose con(erre!
%n!er t$e (o%r basic co!es namel': . . . ;iv< t$e -eal
=ro&ert' 2a4 Co!e as amen!e! . . . in relation to
)ec. 05 o( t$e -eal =ro&ert' 2a4 Co!e ,$ic$
&rovi!es: )ec. 05. 34em&tions (rom -eal =ro&ert'
2a4. 2$e e4em&tion s$all be as (ollo,s: . . . ;g< -eal
&ro&ert' e4em&t %n!er ot$er la,s an! concl%!ing
t$at =.D. 70C is one o( t$e "ot$er la,s" re(erre! to.
6e !o not agree. *( 6e are to sanction t$is
inter&retation t$en necessaril' all real &ro&erties
e4em&t b' an' la, ,o%l! be covere! an! t$ere
,o%l! be no nee! (or t$e legislat%re to s&eci(' "-eal
=ro&ert' 2a4 Co!e as amen!e!" instea! o( stating
clearl' "realt' ta4 e4em&tion la,s". *n!%bitabl' t$e
intention is to limit t$e a&&lication o( t$e "e4ce&tion
cla%se" onl' to t$ose con(erre! b' t$e -eal =ro&ert'
2a4 Co!e. 2$is is not onl' a logical constr%ction o(
t$e &rovisions b%t more so in +ee&ing ,it$ t$e
&rinci&le o( stat%tor' constr%ction t$at ta4
e4em&tions are constr%e! strictl' against ta4&a'ers
$ence t$e' cannot be create! b' mere im&lication
b%t m%st be clearl' &rovi!e! b' la,. NonD
e4em&tion in case o( !o%bt is (avore!.
W%ite obvio%sl' t$e e4ce&tion in )ec. 1 ;e< ;iv< o(
3.O. 81 re(ers to "t$ose con(erre! %n!er . . . -eal
=ro&ert' 2a4 Co!e as amen!e!" an! t$at t$e
e4em&tion claime! b' &etitioner is grante! not b'
t$e -eal =ro&ert' 2a4 Co!e b%t b' =.D. 70C. 6$en
)ec. 05 ;g< o( t$e =ro&ert' 2a4 Co!e &rovi!es t$at
"U2V$e e4em&tion s$all be as (ollo,s: . . . -eal
=ro&ert' e4em&t %n!er ot$er la,s". t$e Co!e
merel' recogniBes realt' ta4 e4em&tions &rovi!e!
b' ot$er la,s ot$er,ise it ma' %n,ittingl' re&eal
t$ose "ot$er la,s".
2$e arg%ment o( &etitioner t$at =.D. 70C is a social
stat%te to give (les$ to t$e Constit%tional &rovisions
on $o%sing $ence not covere! b' =.D. 18CC ,as
s.%arel' met b' res&on!ent CB## in its -esol%tion
o( 7%l' 1 1881 to ,$ic$ 6e (%ll' agree "2$e &$rase
Han' s&ecial or general la,H e4&licitl' in!icates t$at
=.D. No. 18CC !i! not !isting%is$ bet,een a social
stat%te an! an economic or ta4 legislation. Hence
,$ere t$e la, !oes not !isting%is$ ,e cannot
!isting%is$.
*n vie, t$ereo( ,e $ave no reco%rse b%t to a&&l'
t$e e4&ress &rovision o( =.D. No. 18CC an! r%le in
(avor o( t$e ,it$!ra,al o( t$e real &ro&ert' ta4
81
e4em&tion &rovi!e! %n!er =.D. No. 70C. 6e also
(in! ,it$o%t merit t$e contention o( =etitionerD
#&&ellan t t$at B.=. No. 181 ;*nvestment *ncentives
=olic' #ct o( 1881< is t$e so%rce an! reason (or t$e
e4istence o( =.D. No. 18CCA t$ere(ore t$e sco&e o(
=.D. No. 18CC is limite! to investment incentives.
#lt$o%g$ )ection /5 o( sai! B.=. ,$ic$ a%t$oriBes
t$e =resi!ent to restr%ct%re investment incentives
s'stems?legislation s to align t$em ,it$ t$e overall
economic !evelo&ment ob9ectives is one o( t$e
!eclare! &olicies o( =.D. No. 18CC its &rimar' aim is
t$e (orm%lation o( national recover' &rogram to
meet an! overcome t$e grave emergenc' arising
(rom t$e c%rrent economic crisis. Hence it cannot
be maintaine! t$at its &rovisions a&&l' onl' to
investment incentives. Besi!es even granting t$at
its sco&e is limite! it is note! t$at =.D. No. 70C also
s&ea+s o( investment incentives in )ections / an! 1
t$ereo( . . ."
,ational *evelopment Co. v. Cebu Cit#
Facts: =roclamation No. 015 ,as iss%e! b' t$e =resi!ent ,$ic$
reserve! Bloc+ no. 0 -eclamation #rea No. 0 o( Ceb% Cit'
consisting o( 0C88 s.%are meters (or ,are$o%sing &%r&oses %n!er
t$e a!ministration o( National 6are$o%sing Cor&oration.
)%bse.%entl' a ,are$o%se ,it$ a (loor area o( 1805 s.%are
meters more or less ,as constr%cte! t$ereon. N6C !issolve! NDC
too+ over. Commencing 1808 Ceb% assesse! an! collecte! (rom
NDC real estate ta4es on t$e lan! an! t$e ,are$o%se t$ereon. B'
t$e (irst .%arter o( 1875 a total o( =15511G.11 ,as &ai! b' NDC
o( ,$ic$ onl' =188C.5G ,as %n!er &rotest. On /5 Marc$ 1875
NDC ,rote t$e Cit' #ssessor !eman!ing (%ll re(%n! o( t$e real
estate ta4es &ai! claiming t$at t$e lan! an! t$e ,are$o%se
stan!ing t$ereon belonge! to t$e -e&%blic an! t$ere(ore e4em&t
(rom ta4ation. Ceb% !i! not ac.%iesce in t$e !eman! $ence t$e
&resent s%it (ile! /C October 187/ in t$e Co%rt o( First *nstance o(
Manila.
CF*: Ceb% to re(%n! t$e real estate ta4es &ai! b' NDC (or t$e &arcel
o( lan! covere! b' =resi!ential =roclamation No. 015 o( #%g%st 15
1818 an! t$e ,are$o%se erecte! t$ereon (rom an! a(ter October
/C 18GG
C#: certi(ie! t$e case to )C as one involving &%re .%estions o( la,
&%rs%ant to )ec. 17 -.#. /8G.
*ss%e: 6ON NDC is e4em&te! (rom &a'ment o( t$e real estate
ta4es on t$e lan! reserve! b' t$e =resi!ent (or ,are$o%sing
&%r&oses as ,ell as t$e ,are$o%se constr%cte! t$ereon an! in t$e
a((irmative ,$et$er NDC ma' recover in re(%n! %n&roteste! real
estate ta4es it &ai! (rom 1808 to 1875.
)ection 1 &ar. ;a< o( t$e #ssessment La, on ,$ic$
NDC claims real estate ta4 e4em&tion &rovi!es S
)ection 1. =ro&ert' e4em&t (rom ta4. S 2$e
e4em&tions s$all be as (ollo,s: ;a< =ro&ert' o,ne!
b' t$e @nite! )tates o( #merica t$e Common,ealt$
o( t$e =$ili&&ines an' &rovince cit' m%nici&alit' at
m%nici&al !istrict . . .
2$e same o&inion o( NDC ,as &asse! %&on in
National Develo&ment Co. v. =rovince o( N%eva 3ci9a
,$ere 6e $el! t$at its &ro&erties ,ere not
com&re$en!e! in )ec. 1 &ar ;a< o( t$e #ssessment
La,. *n &art 6e state!: 1. Common,ealt$ #ct No.
18/ ,$ic$ create! NDC contains no &rovision
e4em&ting it (rom t$e &a'ment o( real estate ta4 on
&ro&erties it ma' ac.%ire . . . 2$ere is 9%sti(ication in
t$e contention o( &lainti((Da&&ellee t$at . . . U*Vt is
%n!eniable t$at to an' m%nici&alit' t$e &rinci&al
so%rce o( reven%e ,it$ ,$ic$ it ,o%l! !e(ra' its
o&eration ,ill came (rom real &ro&ert' ta4es. *( t$e
National Develo&ment Com&an' ,o%l! be e4em&t
(rom &a'ing real &ro&ert' ta4es over t$ese
&ro&erties t$e to,n o( Gabal!on ,ill be !e&rive! o(
m%c$ nee!e! reven%es ,it$ ,$ic$ it ,ill maintain
itsel( an! (inance t$e com&elling nee!s o( its
in$abitants /. De(en!antDa&&ellant NDC !oes not
come %n!er classi(ication o( m%nici&al or &%blic
cor&oration in t$e sense t$at it ma' s%e an! be
s%e! in t$e same manner as an' ot$er &rivate
cor&orations an! in t$is sense it is an entit'
!i((erent (rom t$e government !e(en!ant
cor&oration ma' be s%e! ,it$o%t its consent an! is
s%b9ect to ta4ation. *n t$e case NDC vs. 7ose :%lo
2obias 7 )C-# G8/ it ,as $el! t$at . . . &lainti(( is
8/
neit$er t$e Government o( t$e -e&%blic nor a
branc$ or s%b!ivision t$ereo( b%t a government
o,ne! an! controlle! cor&oration ,$ic$ cannot be
sai! to e4ercise a sovereign (%nction. it is a b%siness
cor&oration an! as s%c$ its ca%ses o( action are
s%b9ect to t$e stat%te o( limitations. . . . 2$at &lainti((
$erein !oes not e4ercise sovereign &o,ers S an!
$ence cannot invo+e t$e e4em&tions t$ereo( XX b%t
is an agenc' (or t$e &er(ormance o( &%rel'
cor&orate &ro&rietar' or b%siness (%nctions is
a&&arent (rom its Organic #ct ;Common,ealt$ #ct
18/ as amen!e! b' Common,ealt$ #ct 111<
&%rs%ant to )ection 1 o( ,$ic$ it "s$all be s%b9ect to
t$e &rovisions o( t$e Cor&oration La, inso(ar as
t$e' are not inconsistent" ,it$ t$e &rovisions o( sai!
Common,ealt$ #ct "an! s$all $ave t$e general
&o,ers mentione! in sai!" Cor&oration La, an!
$ence "ma' engage in commercial in!%strial
mining agric%lt%ral an! ot$er enter&rises ,$ic$
ma' be necessar' or contrib%tor' to t$e economic
!evelo&ment o( t$e co%ntr' or im&ortant in t$e
&%blic interest" as ,ell as "ac.%ire $ol! mortgage
an! alienate &ersonal an! real &ro&ert' in t$e
=$ili&&ines or else,$ereA . . . ma+e contracts o( an'
+in! an! !escri&tion" an! "&er(orm an' an! all acts
,$ic$ a cor&oration or nat%ral &ersons is a%t$oriBe!
to &er(orm %n!er t$e la,s no, e4isting or ,$ic$
ma' be enacte! $erea(ter."
6e (in! no com&elling reason ,$' t$e (oregoing
r%ling alt$o%g$ re(erring to lan!s ,$ic$ ,o%l!
event%all' be trans(erre! to &rivate in!ivi!%als
s$o%l! not a&&l' e.%all' to t$is case.
NDC cites Boar! o( #ssessment #&&eals =rovince o(
Lag%na v. Co%rt o( 2a4 #&&eal an! National
6ater,or+s an! )e,erage #%t$orit' ;N6)#<. *n t$at
case 6e $el! t$at &ro&erties o( N6)# a GOCC
,ere e4em&t (rom real estate ta4 beca%se )ec. 1
&ar ;c< o( -.#. 075 !i! not !isting%is$ bet,een
t$ose &ossesse! b' t$e government in
sovereign?governmen tal?&olitical ca&acit' an!
t$ose in &rivate?&ro&rietar' ?&atrimonial c$aracter.
2$e con(lict bet,een NDC v. N%eva 3ci9a s%&ra an!
B## v. C2# an! N6)# s%&ra is more s%&er(icial
t$an real. 2$e NDC !ecision s&ea+s o( &ro&erties
o,ne! b' NDC ,$ile t$e B## r%ling concerns
&ro&erties belonging to t$e -e&%blic. 2$e latter case
a&&ears to be e4ce&tional beca%se t$e &arties
t$erein sti&%late! 1. 2$at t$e &etitioner National
6ater,or+s an! )e,erage #%t$orit' ;N#6#)#< is a
&%blic cor&oration create! b' virt%e o( -e&%blic #ct.
No. 1181 an! t$at it is o,ne! b' t$e Government o(
t$e =$ili&&ines as ,ell as all &ro&ert' com&rising
,ater,or+s an! se,erage s'stems &lace! %n!er it
;3m&$asis s%&&lie!<. 2$ere t$e Co%rt observe!: "*t
is conce!e! in t$e sti&%lation o( (acts t$at t$e
&ro&ert' involve! in t$is case "is o,ne! b' t$e
Government o( t$e =$ili&&ines. " Hence it belongs
to t$e -e&%blic o( t$e =$ili&&ines an! (alls s.%arel'
,it$in letter o( t$e above &rovision."
*n t$e case at bar no similar statement a&&ears in
t$e sti&%lation o( (acts $ence o,ners$i& o( s%b9ect
&ro&erties s$o%l! (irst be establis$e!. For ,$ile it
ma' be state! t$at t$e -e&%blic o,ns NDC it !oes
not necessar' (ollo, t$at &ro&erties o,ne! b' NDC
are also o,ne! b' -e&%blic S in t$e same ,a' t$at
stoc+$ol!ers are not i&so (actoo,ners o( t$e
&ro&erties o( t$eir cor&oration.
2$e -e&%blic li+e an' in!ivi!%al ma' (orm a
cor&oration ,it$ &ersonalit' an! e4istence !istinct
(rom its o,n. 2$e se&arate &ersonalit' allo,s a
GOCC to $ol! an! &ossess &ro&erties in its o,n
name an! t$%s &ermit greater in!e&en!ence an!
(le4ibilit' in its o&erations. *t ma' t$ere(ore be
state! t$at ta4 e4em&tion o( &ro&ert' o,ne! b' t$e
-e&%blic o( t$e =$ili&&ines "re(ers to &ro&erties
o,ne! b' t$e Government an! b' its agencies
,$ic$ !o not $ave se&arate an! !istinct
&ersonalities ;%nincor&orate! entities<.
2$e (oregoing !isc%ssion !oes not mean t$at
beca%se NDC li+e most GOCCHs engages in
commercial enter&rises all &ro&erties o( t$e
government an! its %nincor&orate! agencies
&ossesse! in &ro&riet' c$aracter are ta4able.
81
)imilarl' in t$e case at bar NDC &rocee!e! on t$e
&remise t$at t$e B## r%ling !eclare! all &ro&erties
o,e! b' GOCCHs as &ro&erties in t$e name o( t$e
-e&%blic $ence e4em&t %n!er )ec. 1 o( t$e
#ssessment La,.
2o come ,it$in t$e ambit o( t$e e4em&tion &rovi!e!
in #rt. 1 &ar. ;a< o( t$e #ssessment La, it is
im&ortant to establis$ t$at t$e &ro&ert' is o,ne! b'
t$e government or its %nincor&orate! agenc' an!
once government o,ners$i& is !etermine! t$e
nat%re o( t$e %se o( t$e &ro&ert' ,$et$er (or
&ro&rietar' or sovereign &%r&oses becomes
immaterial. 6$at a&&ears to $ave been ce!e! to
N6C ;later trans(erre! to NDC< in t$e case be(ore
@s is merel' t$e a!ministration o( t$e &ro&ert'
,$ile t$e government retains o,ners$i& o( ,$at $as
been !eclare! reserve! (or ,are$o%sing &%r&oses
%n!er =roclamation No. 015.
*nci!entall' t$e &arties never raise! t$e iss%e! t$e
iss%e o( o,ners$i& (rom t$e co%rt a .%o to t$is
Co%rt. # reserve! lan! is !e(ine! as a "U&V%blic lan!
t$at $as been ,it$$el! or +e&t bac+ (rom sale or
!is&osition. " 2$e lan! remains "absol%te &ro&ert'
o( t$e government." 2$e government "!oes not &art
,it$ its title b' reserving t$em ;lan!s< b%t sim&l'
gives notice to all t$e ,orl! t$at it !esires t$em (or
a certain &%r&ose." #bsol%te !is&osition o( lan! is
not im&lie! (rom reservationA it merel' means "a
,it$!ra,al o( a s&eci(ie! &ortion o( t$e &%blic
!omain (rom !is&osal %n!er t$e lan! la,s an! t$e
a&&ro&riation t$ereo( (or t$e time being to some
&artic%lar %se or &%r&ose o( t$e general
government." #s its title remains ,it$ t$e -e&%blic
t$e reserve! lan! is clearl' recovere! b' t$e ta4
e4em&tion &rovision.
Ceb%: reservation o( t$e &ro&ert' in (avor o( N6C or
NDC is a (orm o( !is&osition o( &%blic lan! ,$ic$
s%b9ects t$e reci&ient ;NDC < to real estate ta4ation
%n!er )ec. 11C o( t$e =%blic Lan! #ct. as amen!e!
b' -.#. 01G.
#s 6e vie, it t$e e((ect o( reservation %n!er )ec.
81 is to segregate a &iece o( &%blic lan! an!
trans(orm it into nonDalienable or nonD!is&osable
%n!er t$e =%blic Lan! #ct. )ection 11C on t$e ot$er
$an! a&&lies to !is&osable &%blic lan!s. Clearl'
t$ere(ore )ec. 11C !oes not a&&l' to lan!s reserve!
%n!er )ec. 81. Conse.%entl' t$e s%b9ect reserve!
&%blic lan! remains ta4 e4em&t.
#s regar!s t$e ,are$o%se constr%cte! on a &%blic
reservation a !i((erent r%le s$o%l! a&&l' beca%se
"UtV$e e4em&tion o( &%blic &ro&ert' (rom ta4ation
!oes not e4ten! to im&rovements on t$e &%blic
lan!s ma!e b' &reDem&tioners $omestea!ers an!
ot$er claimants or occ%&ants at t$eir o,n e4&ense
an! t$ese are ta4able b' t$e state . . ."
Conse.%entl' t$e ,are$o%se constr%cte! on t$e
reserve! lan! b' N6C ;no, %n!er a!ministration b'
NDC< in!ee! s$o%l! &ro&erl' be assesse! real
estate ta4 as s%c$ im&rovement !oes not a&&ear to
belong to t$e -e&%blic.
)ince t$e reservation is e4em&t (rom realt' ta4 t$e
erroneo%s ta4 &a'ments collecte! b' Ceb% s$o%l!
be re(%n!e! to NDC. 2$is is in consonance ,it$ )ec.
05 &ar. ;a< o( t$e (ormer -eal =ro&ert' 2a4 Co!e
,$ic$ e4em&te! (rom ta4ation real &ro&ert' o,ne!
b' t$e -e&%blic o( t$e =$ili&&ines or an' o( its
&olitical s%b!ivisions as ,ell as an' GOCC so
e4em&t b' its c$arter.
#s regar!s t$e re.%irement o( &a'ing %n!er &rotest
be(ore 9%!icial reco%rse C3B@ arg%es t$at in an'
case NDC is not entitle! to re(%n! beca%se )ec. 7C
o( -.#. 18C7 t$e -evise! C$arter o( t$e Cit' o(
Ceb% re.%ires &a'ment%n!er &rotest be(ore
resorting to 9%!icial action (or ta4 re(%n!A t$at it
co%l! not $ave acte! on t$e (irst !eman! letter o(
NDC o( /5 Ma' 1875 beca%se it ,as sent to t$e Cit'
#ssessor an! not to t$e Cit' 2reas%rerA t$at
conse.%entl' t$ere $aving been no a&&ro&riate
&rior !eman! resort to 9%!icial reme!' is
&remat%reA an! t$at even on t$e &remise t$at t$ere
,as &ro&er !eman! NDC $as 'et to e4$a%st
a!ministrative reme!ies b' ,a' o( a&&eal to t$e
De&artment o( Finance an!?or #%!itor General
be(ore ta+ing 9%!icial action.
80
NDC e4em&t (rom real estate ta4 on t$e reserve!
lan! b%t liable (or t$e ,are$o%se erecte! t$ereon.
Province o! 'arlac v. +uge Alcantara
Facts: 2arlac 3nter&rises is t$e o,ner o( a &arcel o( lan! an ice
!ro& (actor' a mac$iner' s$e! all locate! at Mabini 2arlac 2arlac
mac$iner' o( Diesel 3lect.. )ets.
-eal estate ta4es o( t$e a(oresai! &ro&erties (rom 1870 to
December 11 188/ in t$e total amo%nt o( =C1/01C.CC incl%!ing
&rinci&als an! &enalties $as not been &ai!. 2arlac no, &ra's (or
&a'ment as ,ell as !amages an! costs o( s%it. 23 move! to
!ismiss. LC !enie!. M- !enie!. 2$erea(ter 2arlac set t$e a%ction
sale o( 23Hs &ro&erties to satis(' t$e real estate ta4es !%e. 2$is
&rom&te! 23 to (ile a motion &ra'ing t$at &etitioner be !irecte! to
!esist (rom &rocee!ing ,it$ t$e &%blic a%ction sale. LC: iss%e! an
or!er granting sai! motion to &revent mootness o( t$e case
consi!ering t$at t$e &ro&erties to be sol! ,ere t$e s%b9ects o( t$e
com&laint.
23>s ans,er: !eman!s (or t$e &a'ment o( real &ro&ert' ta4es $a!
been ma!e b%t it re(%se! to &a' t$e same (or t$e reason t$at %n!er
)ec. 05 &aragra&$ ;g< o( =D 0G0 in relation to =.D. No.. CC1 as
amen!e! it ,as e4em&t (rom &a'ing sai! ta4. *t also raise! as
a((irmative !e(enses t$at t$e com&laint state! no ca%se o( action
an! t$at t$e claims $a! been ,aive! aban!one! or ot$er,ise
e4ting%is$e! or barre! b' t$e stat%te o( limitations.
LC: !ismisse! t$e com&laint. *t r%le! t$at =.D. No. CC1 e4&ressl'
e4em&ts &rivate res&on!ent (rom &a'ing t$e real &ro&ert' ta4es
!eman!e! it being a grantee o( a (ranc$ise to generate !istrib%te
an! sell electric c%rrent (or lig$t. 2$e co%rt $el! t$at in lie% o( sai!
ta4es &rivate res&on!ent $a! been re.%ire! to &a' t,o &ercent
;/Y< (ranc$ise ta4 in line ,it$ t$e intent o( t$e la, to give
assistance to o&erators s%c$ as t$e &rivate res&on!ent to enable
t$e cons%mers to en9o' c$ea&er rates. B%t%an )a,mill *nc. v. Cit'
o( B%t%an: t$e co%rt r%le! t$at localDgovernments are ,it$o%t
&o,er to ta4 t$e electric com&anies alrea!' s%b9ect to (ranc$ise
ta4 %nless t$eir (ranc$ise allo,s t$e im&osition o( a!!itional ta4.
M-: !enie!.
*))@3: 6ON 23 is e4em&t (rom t$e &a'ment o( real &ro&ert' ta4
%n!er )ec. 05 ;g< o( =.D. No. 0G0 in relation to =.D. No. CC1 as
amen!e!. NO.
)ec. 05;g< o( =.D. No. 0G0 t$e -eal =ro&ert' 2a4
Co!e: )3C. 05. 34em&tions (rom -eal =ro&ert' 2a4. D
2$e e4em&tion s$all be as (ollo,s:;g< -eal &ro&ert'
e4em&t %n!er ot$er la,s. 23 conten!s t$at t$e
"ot$er la,s" re(erre! to in t$is )ection is =.D. No.
CC1 ;Lo,ering t$e Cost to Cons%mers o( 3lectricit'
b' -e!%cing t$e Franc$ise 2a4 =a'able b' 3lectric
Franc$ise Hol!ers an! t$e 2ari(( on F%el Oils (or t$e
Generation o( 3lectric =o,er b' =%blic @tilities<. *ts
&ertinent &rovisions state: )3C2*ON 1. #n' &rovision
o( la, or local or!inance to t$e contrar'
not,it$stan!ing t$e (ranc$ise ta4 &a'able b' all
grantees o( (ranc$ises to generate !istrib%te an!
sell electric c%rrent (or lig$t $eat an! &o,er s$all
be t,o ;/Y< o( t$eir gross recei&ts receive! (rom
t$e sale o( electric c%rrent an! (rom transactions
inci!ent to t$e generation !istrib%tion an! sale o(
electric c%rrent.
)%c$ (ranc$ise ta4 s$all be &a'able to t$e
Commissioner o( *nternal -even%e or $is !%l'
a%t$oriBe! re&resentative on or be(ore t$e t,entiet$
!a' o( t$e mont$ (ollo,ing t$e en! o( eac$ calen!ar
.%arter or mont$ as ma' be &rovi!e! in t$e
res&ective (ranc$ise or &ertinent m%nici&al
reg%lation an! s$all an' &rovision o( t$e Local 2a4
Co!e or an' ot$er la, to t$e contrar'
not,it$stan!ing be in lie% o( all ta4es assessments
o( ,$atever nat%re im&ose! b' an' national or
a%t$orit' on earnings recei&ts income an!
&rivilege o( generation !istrib%tion an! sale o(
electric c%rrent."
=.D. No. CC1 ,as amen!e! on December 18. 187C
b' =.D. No. 8C/ 15 ,it$ t$e insertion o( t$e &$rase
"an! (or t$e man%(act%re !istrib%tion an! sale o(
cit' gas" bet,een t$e &$rases ". . . lig$t $eat an!
&o,er" an! "s$all be t,o ;/Y< . . . ."
6e !o not agree ,it$ t$e lo,er co%rt t$at t$e
&$rase "in lie% o( all ta4es an! assessments o(
,$atever nat%re" in t$e secon! &aragra&$ o( )ec. 1
o( =.D. No. CC1 e4&ressl' e4em&ts &rivate
res&on!ent (rom &a'ing real &ro&ert' ta4es. #s
correctl' observe! b' t$e &etitioner sai! &roviso is
8C
mo!i(ie! an! !elimite! b' t$e &$rase "on earnings
recei&ts. income an! &rivilege o( generation
!istrib%tion an! sale" ,$ic$ s&eci(ies t$e +in!s o(
ta4es an! assessments ,$ic$ s$all not be collecte!
in vie, o( t$e im&osition o( t$e (ranc$ise ta4. )ai!
en%merate! items %&on ,$ic$ ta4es s$all not be
im&ose! $ave no relation at all to an! are entirel'
!i((erent (rom. real &ro&erties s%b9ect to ta4.
*( t$e intention o( t$e la, is to e4em&t electric
(ranc$ise grantees (rom &a'ing real &ro&ert' ta4
an! to ma+e t$e t,o ;/Y< &ercent (ranc$ise ta4 t$e
onl' im&osable ta4 t$en sai! en%merate! items
,o%l! not $ave been a!!e! ,$en =.D. No. 8C/ ,as
enacte! to amen! =.D. No. CC1. 2$e legislative
a%t$orit' ,o%l! $ave sim&l' sto&&e! a(ter t$e
&$rase "national or local a%t$orit'" b' &%tting
t$erein a &erio!. On t$e contrar' it ,ent on to
en%merate ,$at s$o%l! not be s%b9ect to ta4
t$ereb' !elimiting t$e e4tent o( t$e e4em&tion.
6e li+e,ise !o not (in! merit in &rivate res&on!entHs
contention t$at t$e real &ro&erties being ta4e! viB.
t$e mac$iner' (or t$e generation an! !istrib%tion o(
electric &o,er t$e b%il!ing $o%sing sai! mac$iner'
an! t$e lan! on ,$ic$ sai! b%il!ing is constr%cte!
are necessar' (or t$e o&eration o( its b%siness o(
generation !istrib%tion an! sale o( electric c%rrent
an! t$ere(ore t$e' s$o%l! be e4em&te! (rom
ta4ation. =rivate res&on!ent a&&arentl' !oes not
.%ite com&re$en! t$e !istinction among t$e s%b9ect
matters or ob9ects o( t$e ta4es involve!. *t bears
em&$asis t$at =.D. No. CC1 as amen!e! b' =.D. No.
8C/ !eals ,it$ (ranc$ise ta4 an! tari(( on (%el oils
an! t$e "earnings recei&ts income an! &rivilege o(
generation !istrib%tion an! sale o( electric c%rrent"
are t$e items e4em&te! (rom ta4ation b' t$e
im&osition o( sai! ta4 or tari(( !%t'. On t$e ot$er
$an! t$e collection com&laint (ile! b' &etitioner
s&eci(ie! onl' ta4es !%e on real &ro&erties. 6$ile
=.D. No. CC1 ,as inten!e! to give "assistance to t$e
(ranc$ise $ol!ers b' re!%cing some o( t$eir ta4 an!
tari(( obligations " to constr%e sai! !ecree as
$aving grante! s%c$ (ranc$ise $ol!ers e4em&tion
(rom &a'ment o( real &ro&ert' ta4 ,o%l! %n!%l'
e4ten! t$e ambit o( e4em&tions be'on! t$e &%rvie,
o( t$e la,.
2$e anne4es attac$e! to &rivate res&on!entHs
comment on t$e &etition to &rove b'
contem&oraneo%s inter&retation its claime! ta4
e4em&tion are not o( m%c$ $el& to it. De&artment
Or!er No. 1CD70 !ate! )e&tember 1G 1870
reg%lating t$e im&lementation o( =.D. No. CC1
merel' reiterates t$e "in lie% o( all ta4es" &roviso.
Local 2a4 -eg%lations 1D7C 1/ iss%e! b' t$en
)ecretar' o( Finance Cesar Kirata an! a!!resse! to
all =rovincial an! Cit' 2reas%rers en9oins strict
com&liance ,it$ t$e !irective t$at "t$e (ranc$ise ta4
im&ose! %n!er Local 2a4 Or!inances &%rs%ant to
)ection 18 o( t$e Local 2a4 Co!e as amen!e! s$all
be collecte! (rom b%siness $ol!ing (ranc$ises b%t
not (rom establis$ments ,$ose (ranc$ise contains
t$e in lie% o( all ta4esH &roviso" t$ereb' clearl'
in!icating t$at sai! &roviso e4em&ts ta4&a'ers li+e
&rivate res&on!ent (rom &a'ing t$e (ranc$ise ta4
collecte! b' t$e &rovinces %n!er t$e Local 2a4
Co!e. Lastl' t$e letter o( t$e t$en B*- #cting
Commissioner a!!resse! to t$e Matic La, O((ice
granting e4em&tion to t$e latterHs client (rom &a'ing
t$e "&rivilege ta4 ,$ic$ is an e4cise ta4 on t$e
&rivilege o( engaging in b%siness" clearl' e4cl%!es
realt' ta4 (rom s%c$ e4em&tion.
6e also (in! mis&lace! t$e lo,er co%rtHs an! t$e
&rivate res&on!entHs reliance on B%t%an )a,mill. v.
Cit' o( B%t%an. *n t$at case t$e .%estione! ta4 is a
ta4 on t$e gross sales or recei&ts o( sai! sa,mill
,$ile t$e ta4 involve! $erein is a real &ro&ert' ta4.
2$e Cit' o( B%t%an is categoricall' &ro$ibite! t$erein
b' )ec. /;9< o( t$e Local #%tonom' #ct (rom
im&osing "ta4es o( an' +in!Non &erson &a'ing
(ranc$ise ta4." On t$e ot$er $an! =.D. No. CC1 is
not as allDencom&assing as sai! &rovision o( t$e
Local #%tonom' #ct (or it en%merates t$e items
,$ic$ are not ta4able b' virt%e o( t$e &a'ment o(
(ranc$ise ta4.
8G
*t $as al,a's been t$e r%le t$at "e4em&tions (rom
ta4ation are constr%e! in strictissimi 9%ris against
t$e ta4&a'er an! liberall' in (avor o( t$e ta4ing
a%t$orit'" &rimaril' beca%se "ta4es are t$e li(ebloo!
o( government an! t$eir &rom&t an! certain
availabilit' is an im&erio%s nee!." 2$%s to be
e4em&te! (rom &a'ment o( ta4es it is t$e
ta4&a'erHs !%t' to 9%sti(' t$e e4em&tion "b' ,or!s
too &lain to be mista+en an! too categorical to be
misinter&rete!. =rivate res&on!ent $as %tterl' (aile!
to !isc$arge t$is !%t'.
Lo,er co%rt erre! in e4em&ting 23 (rom &a'ing real
&ro&ert' ta4 on its &ro&erties ,$ic$ are en%merate!
in t$e com&laint. Ho,ever in its !ecision t$e lo,er
co%rt (o%n! t$at &rivate res&on!ent o,ns onl' t$ree
real &ro&erties consisting o( t$e &arcel o( lan!
mac$iner' s$e! an! mac$iner' noticeabl' omitting
t$e ice !ro& (actor' mentione! in its com&laint b'
t$e &etitioner. *n vie, $o,ever o( t$e &etitionerHs
(ail%re to assign s%c$ omission as an error t$e same
s$o%l! be consi!ere! ,aive!.
Casi@o v. CA
Facts: 2$e )angg%niang =angl%ngso! o( Gingoog &asse! -esol%tion
08 ,$ic$ classi(ie! certain areas incl%!ing CasiRo>s colise%m ,$ic$
,as license! as a coc+&it. 2$e classi(ication le! to t$e cancellation
o( CasiRo>s license to o&erate s%c$ coc+&it.
2$e or!inance &rovi!es t$at c$anges in t$e Boning or!inance as a
res%lt o( t$e revie, b' t$e Local -evie, Committee s$all be treate!
as an amen!ment &rovi!e! t$at s%c$ is carrie! o%t t$ro%g$ a
resol%tion o( t$ree (o%rt$s vote o( t$e )=. )ai! amen!ments s$all
ta+e e((ect onl' a(ter a&&roval an! a%t$entication b' t$e H)-C. On
#%g%st 11 188C -esol%tion No. 178 Co!e Or!inance )eries o(
188C reclassi(ie! Bloc+ 1/C as ,it$in t$e recreational Bone t$%s
allege!l' amen!ing -esol%tion No. 08. Nine ;8< members o( t$e
sai! )= &artici&ate! ,it$ (o%r ;0< members voting (or t$e
amen!ment ,$ile (o%r ;0< vote! against an! ,it$ one ;1<
abstention. 2$e viceDma'or as &resi!ing o((icer bro+e t$e
!ea!loc+ b' voting (or t$e amen!ment. 6$en -esol%tion No. 178
,as transmitte! to t$en Cit' Ma'or Mig%el =a!eranga (or a&&roval
$e ret%rne! t$e same to t$e )= ,it$in ten !a's ,it$o%t an' action
stating t$at $is a&&roval t$ereo( ,as not necessar' since it !i! not
involve a !is&osition o( cit' government (%n!s as &rovi!e! b'
)ection 185 o( t$e LGC an! )ection 10 o( t$e c$arter o( Gingoog
Cit'. B' virt%e o( sai! -esol%tion No. 178 Ma'or L%go! iss%e! to
&etitioner t$e a(orestate! &ermit to o&erate a coc+&it !ate! #&ril /
188G ,$ic$ ,as rene,e! b' anot$er &ermit iss%e! on 7an%ar' C
1887. Gingoog Gallera &roteste! t$e o&eration o( Colise%m be(ore
t$e =$ili&&ine Game(o,l Commission. 2$e &rotest ,as (o%n!e! on
t$e (act t$at no certi(icate o( registration $a! as 'et been iss%e! b'
t$e =GC alt$o%g$ cit' ma'orHs &ermits ,ere iss%e! to &etitioner.
On #&ril 11 188G t$e =GC t$ro%g$ O*C Orog sent a telegram to
t$e )tation Comman!er o( Gingoog Cit' to s%s&en! in t$e
meantime t$e o&eration o( t$e coc+&it. On #&ril /0 188G t$e =GC
event%all' sent a telegram to t$e cit' ma'or to sto& an' coc+(ig$t
in t$e Colise%m in vie, o( its (ail%re to register ,it$ t$e =GC.
2$erea(ter an action (or &ro$ibition an! man!am%s ,it$
&reliminar' in9%nction ,as (ile! b' Gallera be(ore t$e -2C against
&etitioner on t$e gro%n! t$at -esol%tion No. 178 &%r&orte!l'
amen!ing Boning Or!inance No. 08 is invali!. *t asserte! t$at t$e
classi(ication o( Colise%mHs site as still ,it$in t$e resi!ential Bone o(
Gingoog Cit' ,as accor!ingl' maintaine! an! %nc$ange! t$ereb'
87
ren!ering t$e ma'orHs &ermits iss%e! to t$e latter n%ll an! voi! (or
being in violation o( )ection G o( t$e -%les an! -eg%lations o( t$e
=GC. On #&ril /C 188G t$e trial co%rt iss%e! a ,rit o( &reliminar'
in9%nction en9oining &etitioner to !esist (rom o&erating t$e
Colise%m %ntil t$e =GC s$all $ave (inall' !eci!e! t$e controvers'
bet,een &etitioner an! &rivate res&on!ent Gallera.
-2C: !eclare! t$e a(oresai! ma'orHs &ermits n%ll an! voi! an!
or!ere! CasiRo an! all &ersons re&resenting $im or acting in $is
be$al( (rom (%rt$er o&erating t$e coc+&it in .%estion.
M- !enie!.
*ss%es: 1. 6ON t$e =GC controls t$e o&erations o( t$e Don -om%lo
-o!rig%eB Colise%m ,it$ res&ect to t$e local?or!inar' coc+(ig$ts
!%ring )%n!a's $oli!a's an! (iestas in Gingoog Cit' !es&ite t$e
(act t$at t$e Ma'or o( Gingoog Cit' iss%e! a ma'orHs &ermit (or
188G an! 1887 ,it$ t$e conc%rrence o( t$e sangg%niang
&anl%ngso!. :3).
=GC $as t$e &o,er not o( control b%t onl' o( revie,
an! s%&ervision. 2$is &o,er ,as vali!l' e4ercise!
b' sai! commission over Colise%m ,$en it so%g$t to
sto& t$e (ormerHs o&erations t$ro%g$ t$e local
o((icials. *t !i! not ,$imsicall' or!er t$e s%s&ension
an! t$e conse.%ent sto&&age o( Colise%mHs
o&erations. -at$er =GC onl' e4ercise! its &o,er o(
revie, over t$e acts &er(orme! b' t$e local
a%t$orities in relation to or ,$ic$ a((ect t$e e4ercise
o( its (%nctions.
2$e &o,er o( revie, is e4ercise! to !etermine
,$et$er it is necessar' to correct t$e acts o( t$e
s%bor!inate an! to see to it t$at $e &er(orms $is
!%ties in accor!ance ,it$ la,. 2$is t$e =GC !i! b'
bringing to t$e attention o( t$e local a%t$orities t$e
nonDcom&liance b' &etitioner ,it$ t$e r%les involve!
in t$is case ,$ic$ ,e (in! reasonable an! necessar'
in t$e !isc$arge o( t$e reg%lator' (%nctions o( =GC.
=GC ma' (or t$at &%r&ose an! as it !i! $ere
in!icate its !isa&&roval o( t$e acts o( t$e local
o((icials concerne! to stress an! &er(orm its role
,it$ res&ect to t$e reg%lation o( coc+&its.
2$e !ecision o( t$e First Division o( t$is Co%rt in
Gingoog Gallera *nc. vs. =GC is not "!iametricall'
o&&ose! to" t$e !ecision ren!ere! in t$is case in
regar! to t$e &rimac' o( t$e &o,er?a%t$orit'
bet,een t$e local o((icials o( t$e Cit' o( Gingoog
an! t$e =GC. Bot$ !ecisions are in accor! ,it$ one
anot$er. 2$e !ecision o( t$e First Division t$at it is
t$e M%nici&al?Cit' Ma'or ,it$ t$e a%t$oriBation o(
t$e )angg%niang Ba'an t$at $as t$e &rimar' &o,er
to iss%e licenses (or t$e o&eration o( or!inar'
coc+&its is o( t$e same tenor an! e((ect as t$e
!ecision o( t$is case as can be seen in t$e (ollo,ing
,or!ings: 2$e tas+ o( granting licenses to o&erate
coc+&its is lo!ge! ,it$ Cit' an! M%nici&al Ma'or
,it$ t$e conc%rrence o( t$eir res&ective
)angg%nians. 2$is is s&eci(icall' grante! to t$em b'
)ection 0 o( =resi!ential Decree No. 185/ as
amen!e! b' =resi!ential Decree No. 185/D# ,$ic$
states: )ec. 0. Cit' an! M%nici&al Ma'ors ,it$ t$e
conc%rrence o( t$eir res&ective )angg%nians s$all
$ave t$e a%t$orit' to license an! reg%late reg%lar
coc+(ig$ting &%rs%ant to t$e r%les an! reg%lations
&rom%lgate! b' t$e Commission an! s%b9ect to its
revie, an! s%&ervision.
6$ile t$is Co%rt agrees ,it$ t$e movant t$at a
ma'orHs &ermit? license is a con!ition &rece!ent to
t$e iss%ance o( t$e =GC -egistration Certi(icate in
t$e case at bar t$e cit' ma'orHs &ermits iss%e! to
movant ,ere n%ll an! voi! as t$e' ,ere grante!
&%rs%ant to -esol%tion No. C78 ,$ic$ never too+
e((ect beca%se o( nonDcom&liance ,it$ t$e
&roce!%re &rescribe! in -esol%tion No. 08. #n!
beca%se o( t$e n%llit' o( t$e Ma'orHs &ermit t$e
-egistration Certi(icate No. CD8G81G iss%e! to
movant is li+e,ise n%ll an! voi!. 2$e s&ring cannot
rise $ig$er t$an its so%rce
/. 6ON t$e ma'orHs &ermits iss%e! b' t$e Ma'or o( Gingoog
Cit' (or t$e 'ears 188G an! 1887 are n%ll an! voi! beca%se
-esol%tion 178 !i! not amen! )ection G.00 o( -esol%tion
08 Co!e Or!inance o( 1880 t$e t$reeD(o%rt$s ;1?0< votes
not $aving been obtaine! in &assing sai! -esol%tion 178.
:3).
=etitioner: legal beca%se t$e same ,as &asse! b'
t$e sangg%nian b' a ma9orit' o( (ive a((irmative
votes as against (o%r negative votes. He conten!s
88
t$at t$e t$reeD(o%rt$s vote re.%irement %n!er
)ection G.00 -esol%tion No. 08 asi!e (rom its being
merel' a (ormal re.%irement is an enactment o( t$e
sangg%nian ,$ic$ is %ltra vires.
)C: -esol%tion No. 178 ,as !eclare! invali! b' t$e
Co%rt o( #&&eals (or (ail%re to com&l' ,it$ t$e
re.%ire! votes necessar' (or its vali!it'. #lt$o%g$
t$e c$arter o( t$e Cit' o( Gingoog an! t$e LGC
re.%ire onl' a ma9orit' (or t$e enactment o( an
or!inance -esol%tion No. 08 cannot be vali!l'
amen!e! b' t$e resol%tion in .%estion ,it$o%t
com&l'ing ,it$ t$e categorical re.%irement o( a
t$reeD(o%rt$s vote incor&orate! in t$e ver' same
or!inance so%g$t to be amen!e!. 2$e &ertinent
&rovisions in t$e a(oresai! cit' c$arter an! t$e LGC
obvio%sl' are o( general a&&lication an! embrace a
,i!er sco&e or s%b9ect matter. *n t$e enactment o(
or!inances in general t$e a&&lication o( t$e
a(orementione! la,s cannot be !is&%te!.
@n!eniabl' $o,ever )ection G.00 o( sai! or!inance
regar!ing amen!ments t$ereto is a s&eci(ic an!
&artic%lar &rovision (or sai! or!inance an! e4&licitl'
&rovi!es (or a !i((erent n%mber o( votes. 6$ere
t$ere is in t$e same stat%te a &artic%lar enactment
an! also a general one ,$ic$ in its most
com&re$ensive sense ,o%l! incl%!e ,$at is
embrace! in t$e (ormer t$e &artic%lar enactment
m%st be o&erative an! t$e general statement m%st
be ta+en to a((ect onl' s%c$ cases ,it$in its
lang%age as are not ,it$in t$e &rovisions o( t$e
&artic%lar enactment.
*n t$e instant case alt$o%g$ t$e general la, on t$e
matter re.%ires a mere ma9orit' t$e $ig$er
re.%isite vote in -esol%tion No. 08 s$all govern
since m%nici&al a%t$orities are in a better &osition
to !etermine t$e evils so%g$t to be &revente! b'
t$e incl%sion or incor&oration o( &artic%lar &rovisions
in enacting a &artic%lar stat%te an! t$ere(ore to
&ass t$e a&&ro&riate or!inance to attain t$e main
ob9ect o( t$e la,. 2$is more stringent re.%irement
on t$e necessar' votes (or amen!ments to
-esol%tion No. 08 a&&arentl' (orestalle! t$e
a&&re$en!e! contingenc' (or to borro, t$e ,or!s
o( res&on!ent co%rt "in an a&&arent attem&t to get
ri! o( t$is legal st%mbling bloc+ ;t$e &ro$ibition
against a coc+&it in a resi!ential Bone %n!er
=roclamation 08< t$e )angg%niang =angl%nso! o(
Gingoog Cit' &asse! -esol%tion No. 178 Co!e
Or!inance series o( 188C" . . . "t$ereb'
reclassi('ing Bloc+ 1/C into a recreational Bone."
6it$al it is legall' &ermissible as e4ce&tions to t$e
general &rovisions on meas%res covere! b' cit'
c$arters an! t$e LGC t$at t$e vote re.%irement in
certain or!inances ma' be s&eciall' &rovi!e! (or as
in t$e case o( )ection G.00 o( -esol%tion No. 08
instea! o( t$e %s%al ma9orit' Kote.
Bloc+ 1/C ,$ere Colise%m is locate! remains
classi(ie! as a resi!ential area $ence t$e o&eration
o( a coc+&it t$erein is &ro$ibite!. 2$is ,eig$t'
consi!eration ,$ic$ s$o%l! act%all' be t$e &rinci&al
basis (or t$e n%lli(ication b' res&on!ent co%rt o( t$e
t,o ma'orHs &ermits iss%e!.
*n t$e case at bar t$ere ,as no registration
certi(icate iss%e! m%c$ less a%t$oriBation to
o&erate given b' t$e =GC to t$e &rivate res&on!entD
a&&ellant a con!ition &rece!ent be(ore a grant o(
ma'ors &ermit or license to con!%ct coc+(ig$ting.
2$ere(ore t$e ma'orHs &ermits iss%e! to &rivate
res&on!ent are n%ll an! voi!. Obvio%sl' t$e =GC !i!
not grant t$e &rivate res&on!entDa&&ellant t$e
&ro&er registration certi(icate to o&erate $is coc+&it
beca%se t$e same ,as not constr%cte! ,it$in t$e
a&&ro&riate areas as &rescribe! in Boning la,s or
or!inances o( Gingoog Cit' &%rs%ant to )ection G o(
-%les an! -eg%lation o( t$e =GC.
Gamboa v. Aguirre
Facts: *n t$e 188C elections Coscoll%ela Gamboa 7r. an! #g%irre
7r. an! #raneta ,ere electe! Negros Occi!ental Governor KiceD
Governor an! )= members res&ectivel'. )ometime in #%g%st o(
188C t$e governor !esignate! Gamboa as #cting Governor (or t$e
!%ration o( t$e (ormerHs o((icial tri& abroa! %ntil $is ret%rn. 6$en
t$e )= $el! its reg%lar session on )e&tember G 188C #g%irre an!
88
#raneta .%estione! t$e a%t$orit' o( &etitioner to &resi!e t$erein in
vie, o( $is !esignation as #cting Governor an! as+e! $im to vacate
t$e C$air. Gamboa $o,ever re(%se! to !o so. *n anot$er session
seven ;7< members o( t$e )= vote! to allo, &etitioner to contin%e
&resi!ing ,$ile (o%r ;0< ot$ers vote! against ,it$ one ;1<
abstention. On )e&tember // 188C #P# (ile! be(ore t$e lo,er
co%rt a &etition (or !eclator' relie( an! &ro$ibition. *n t$e
meantime on October / 188C t$e Governor reDass%me! $is o((ice.
Later t$e trial co%rt ren!ere! a !ecision an! !eclare! &etitioner as
"tem&oraril' legall' inca&acitate! to &resi!e over t$e sessions o(
t$e )= !%ring t$e &erio! t$at $e is t$e #cting Governor."
#ggrieve! Gamboa (ile! a &etition (or revie, raising t$e iss%e
earlier mentione!.
*ss%e: 6ON an inc%mbent KiceDGovernor ,$ile conc%rrentl' t$e
#cting Governor contin%e to &resi!e over t$e sessions o( t$e
)angg%niang =anlala,igan.
)ec. 08;a< an! 0GG;a< ;1< o( t$e LGC &rovi!e t$at
t$e KiceDGovernor s$all be t$e &resi!ing o((icer o(
t$e )=. *n a!!ition to s%c$ (%nction $e "become;s<"
t$e Governor an! "ass%me;s<" t$e $ig$er o((ice (or
t$e %ne4&ire! term o( $is &re!ecessor in case o(
"&ermanent vacanc'" t$erein. 6$en t$e vacanc'
$o,ever is merel' tem&orar' t$e KiceDGovernor
"s$all a%tomaticall' e4ercise t$e &o,ers ;s%b9ect to
certain limitations< an! &er(orm t$e !%ties an!
(%nctions" o( t$e Governor. *t ma' be note! t$at t$e
co!e &rovi!es onl' (or mo!es o( s%ccession in case
o( &ermanent vacanc' in t$e o((ice o( t$e Governor
an! t$e KiceDGovernor ;,$et$er single or
sim%ltaneo%sl'< as ,ell as in case o( a tem&orar'
vacanc' in t$e o((ice o( t$e Governor. B%t no s%c$
contingenc' is &rovi!e! in case o( tem&orar'
vacanc' in t$e o((ice o( t$e KiceDGovernor 9%st li+e
t$e 1881 LGC.
*t is correct t$at ,$en t$e KiceDGovernor e4ercises
t$e "&o,ers an! !%ties" o( t$e O((ice o( t$e
Governor $e !oes not ass%me t$e latter o((ice. He
onl' "acts" as t$e Governor b%t !oes not "become"
t$e Governor. His ass%m&tion o( t$e &o,ers !%ties
an! (%nctions o( t$e &rovincial C$ie( 34ec%tive !oes
not create a &ermanent vac%%m or vacanc' in $is
&osition as t$e KiceDGovernor. Necessaril' $e !oes
not relin.%is$ nor aban!on $is &osition an! title as
KiceDGovernor b' merel' becoming an #cting
Governor ;not Governor< or b' merel' e4ercising
t$e &o,ers an! !%ties o( t$e $ig$er o((icer. B%t t$e
&roblem is ,$ile in s%c$ ca&acit' !oes $e
tem&oraril' relin.%is$ t$e &o,ers (%nctions !%ties
an! res&onsibilities o( t$e KiceDGovernor incl%!ing
t$e &o,er to &resi!e over t$e sessions o( t$e )=T
LGC silent b%t :3). # KiceDGovernor ,$o is
conc%rrentl' an #cting Governor is act%all' a .%asiD
Governor. 2$is means t$at (or &%r&oses o(
e4ercising $is legislative &rerogatives an! &o,ers
$e is !eeme! as a nonDmember o( t$e )= (or t$e
time being. B' tra!ition t$e o((ices o( t$e &rovincial
Governor an! KiceDGovernor are essentiall'
e4ec%tive in nat%re ,$ereas &lain members o( t$e
&rovincial boar! &er(orm (%nctions &arta+ing o( a
legislative c$aracter. 2$is is beca%se t$e a%t$orit'
veste! b' la, in t$e &rovincial boar!s involves
&rimaril' a !elegation o( some legislative &o,ers o(
Congress. @nli+e %n!er t$e ol! Co!e ,$ere t$e
Governor is not onl' t$e &rovincial C$ie( 34ec%tive
b%t also t$e &resi!ing o((icer o( t$e local legislative
bo!' t$e ne, Co!e !elineate! t$e %nion o( t$e
e4ec%tiveDlegislative &o,ers in t$e &rovincial cit'
an! m%nici&al levels e4ce&t in t$e Baranga'. @n!er
-.#. 71G5 t$e Governor ,as !e&rive! o( t$e &o,er
to &resi!e over t$e )= an! is no longer consi!ere! a
member t$ereo(. 2$is is clear (rom t$e la, ,$en it
&rovi!es t$at "local legislative &o,er s$all be veste!
in t$e )=" ,$ic$ is "t$e legislative bo!' o( t$e
&rovince" an! en%merates t$erein members$i&
consisting o( t$e: KiceDGovernor as &resi!ing
o((icer reg%lar elective )= members t$ree elective
sectoral re&resentatives an! t$ose e4Do((icio
members namel' &resi!ent o( t$e &rovincial
c$a&ter o( t$e liga ng mga baranga' &resi!ent o(
t$e &anlala,igang &e!eras'on ng mga sangg%niang
+abataan &resi!ent o( t$e &rovincial (e!eration o(
sangg%niang members o( m%nici&alities an!
com&onent cities. None being incl%!e! in t$e
155
en%meration t$e Governor is !eeme! e4cl%!e!
a&&l'ing t$e r%le in legal $ermene%tics t$at ,$en
t$e la, en%merates t$e la, necessaril' e4cl%!es.
On t$e contrar' local e4ec%tive &o,er in t$e
&rovince is veste! alone in t$e Governor. 11
Conse.%entl' t$e %nion o( legislativeDe4ec%tive
&o,ers in t$e o((ice o( t$e local c$ie( e4ec%tive
%n!er t$e (ormer Co!e $as been !isban!e! so t$at
eit$er !e&artment no, com&rises !i((erent an! nonD
intermingling o((icial &ersonalities ,it$ t$e en! in
vie, o( ens%ring a better !eliver' o( &%blic service
an! &rovi!e a s'stem o( c$ec+ an! balance bet,een
t$e t,o.
*t $as been $el! t$at i( a Ma'or ,$o is o%t o( t$e
contrar' is consi!ere! "e((ectivel' absent" t$e KiceD
Ma'or s$o%l! !isc$arge t$e !%ties o( t$e ma'or
!%ring t$e latterHs absence. 2$is !octrine s$o%l!
e.%all' a&&l' to t$e KiceDGovernor since $e is
similarl' sit%ate! as t$e KiceDMa'or. #lt$o%g$ it is
!i((ic%lt to la' !o,n a !e(inite r%le as to ,$at
constit%tes absence 'et t$is term s$o%l! be
reasonabl' constr%e! to mean "e((ective" absence
t$at is one t$at ren!ers t$e o((icer concerne!
&o,erless (or t$e time being to !isc$arge t$e
&o,ers an! &rerogatives o( $is o((ice. 2$ere is no
vacanc' ,$enever t$e o((ice is occ%&ie! b' a legall'
.%ali(ie! inc%mbent. # sens% contrario t$ere is a
vacanc' ,$en t$ere is no &erson la,(%ll' a%t$oriBe!
to ass%me an! e4ercise at &resent t$e !%ties o( t$e
o((ice. B' virt%e o( t$e (oregoing !e(inition it can be
sai! t$at t$e !esignation a&&ointment or
ass%m&tion o( t$e KiceDGovernor as t$e #cting
Governor creates a corres&on!ing tem&orar'
vacanc' in t$e o((ice o( t$e KiceDGovernor !%ring
s%c$ contingenc'. Consi!ering t$e silence o( t$e la,
on t$e matter t$e mo!e o( s%ccession &rovi!e! (or
&ermanent vacancies %n!er t$e ne, Co!e in t$e
o((ice o( t$e KiceDGovernor ma' li+e,ise be
observe! in t$e event o( tem&orar' vacanc'
occ%rring in t$e same o((ice. 2$is is so beca%se in
t$e e'es o( t$e la, t$e o((ice to ,$ic$ $e ,as
electe! ,as le(t barren o( a legall' .%ali(ie! &erson
to e4ercise t$e !%ties o( t$e o((ice o( t$e KiceD
Governor.
Being t$e #cting Governor t$e KiceDGovernor
cannot contin%e to sim%ltaneo%sl' e4ercise t$e
!%ties o( t$e latter o((ice since t$e nat%re o( t$e
!%ties o( t$e &rovincial Governor call (or a (%llDtime
occ%&ant to !isc$arge t$em. )%c$ is not onl'
consistent ,it$ b%t also a&&ears to be t$e clear
rationale o( t$e ne, Co!e ,$erein t$e &olic' o(
&er(orming !%al (%nctions in bot$ o((ices $as alrea!'
been aban!one!. 2o re&eat t$e creation o( a
tem&orar' vacanc' in t$e o((ice o( t$e Governor
creates a corres&on!ing tem&orar' vacanc' in t$e
o((ice o( t$e KiceDGovernor ,$enever t$e latter acts
as Governor b' virt%e o( s%c$ tem&orar' vacanc'.
2$is event constit%tes an "inabilit'" on t$e &art o(
t$e reg%lar &resi!ing o((icer ;Kice Governor< to
&resi!e !%ring t$e )= sessions ,$ic$ t$%s calls (or
t$e o&eration o( t$e reme!' set in #rticle 08;b< o(
t$e LGC S concerning t$e election o( a tem&orar'
&resi!ing o((icer. 2$e contin%it' o( t$e #cting
GovernorHs ;Kice Governor< &o,ers as &resi!ing
o((icer o( t$e )= is s%s&en!e! so long as $e is in
s%c$ ca&acit'. @n!er )ection 08;b< ";i<n t$e event
o( t$e inabilit' o( t$e reg%lar &resi!ing o((icer to
&resi!e at t$e sangg%nian session t$e members
&resent an! constit%ting a .%or%m s$all elect (rom
among t$emselves a tem&orar' &resi!ing o((icer."
Garcia v. COM%L%C
Facts: *n its =amba'ang Ma&as'a$an Blg. 15 )er'e 1881 t$e
)angg%niang Ba'an ng Morong Bataan agree! to t$e incl%sion o(
t$e m%nici&alit' o( Morong as &art o( t$e )%bic )&ecial 3conomic
Zone in accor! ,it$ -# 7//7. On Ma' /0 1881 &etitioners (ile! a
&etition ,it$ t$e )angg%niang Ba'an o( Morong to ann%l
=amba'ang Ma&as'a$an Blg. 15 )er'e 1881 an! so%g$t to allo,
t$e incl%sion o( Morong s%b9ect to certain con!itions. 2$e
m%nici&alit' o( Morong !i! not ta+e an' action on t$e &etition
,it$in 15 !a's a(ter its s%bmission. =etitioners t$en resorte! to
t$eir &o,er o( initiative %n!er t$e LGC. 2$e' starte! to solicit t$e
re.%ire! n%mber o( signat%res to ca%se t$e re&eal o( sai!
151
resol%tion. @n+no,n to t$e &etitioners $o,ever t$e Kice Ma'or
an! =resi!ing O((icer o( t$e )angg%niang Ba'an ng Morong ,rote a
letter !ate! 7%ne 11 1881 to t$e 34ec%tive Director o( COM3L3C
re.%esting t$e !enial o( t$e &etition (or a local initiative an!?or
re(eren!%m beca%se t$e e4ercise ,ill 9%st &romote !ivisiveness
co%nter &ro!%ctivit' an! (%tilit'. *n its session o( 7%l' G 1881 t$e
COM3L3C en banc resolve! to !en' t$e &etition (or local initiative
on t$e gro%n! t$at its s%b9ect is "merel' a resol%tion ;&amba'ang
+a&as'a$an< an! not an or!inance." On 7%l' 11 1881 t$e
COM3L3C en banc (%rt$er resolve! to !irect =rovincial 3lection
)%&ervisor to $ol! action on t$e a%t$entication o( signat%res being
gat$ere! b' &etitioners. COM3L3C o&&ose! t$e &etition. 2$ro%g$
t$e )olicitor General it conten!s t$at %n!er t$e LGC a resol%tion
cannot be t$e s%b9ect o( a local initiative. 2$e same stance is
ass%me! b' t$e )angg%niang Ba'an o( Morong.
*ss%e: 6ON =amba'ang Ma&as'a$an Blg. 15 ser'e 1881 o( t$e
)angg%niang Ba'an o( Morong Bataan is t$e &ro&er s%b9ect o( an
initiative.
-es&: %n!er t$e LGC onl' an or!inance can be t$e s%b9ect o(
initiative. section 1/5 C$a&ter / 2itle J* Boo+ *: Local initiative is
t$e legal &rocess ,$ereb' t$e registere! voters o( a local
government %nit ma' !irectl' &ro&ose enact or amen! an'
or!inance.
)C: 2$e Constit%tion clearl' incl%!es not onl' or!inances b%t
resol%tions as a&&ro&riate s%b9ects o( a local initiative. )ection 1/
o( #rticle K*: "2$e Congress s$all as earl' as &ossible &rovi!e (or a
s'stem o( initiative an! re(eren!%m an! t$e e4ce&tions t$ere(rom
,$ereb' t$e &eo&le can !irectl' &ro&ose an! enact la,s or a&&rove
or re9ect an' act or la, or &art t$ereo( &asse! b' t$e Congress or
local legislative bo!' . . ." #n act incl%!es a resol%tion. Blac+:
!e(ines an act as "an e4&ression o( ,ill or &%r&ose . . . it ma'
!enote somet$ing !one . . . as a legislat%re incl%!ing not merel'
&$'sical acts b%t also !ecrees e!icts la,s 9%!gments resolves
a,ar!s an! !eterminations . . . ." *t is basic t$at a la, s$o%l! be
constr%e! in $armon' ,it$ an! not in violation o( t$e constit%tion.
*n -e G%arina t$at "i( t$ere is !o%bt or %ncertaint'
as to t$e meaning o( t$e legislative i( t$e ,or!s or
&rovisions are obsc%re or i( t$e enactment is (airl'
s%sce&tible o( t,o or more constr%ctions t$at
inter&retation ,ill be a!o&te! ,$ic$ ,ill avoi! t$e
e((ect o( %nconstit%tionalit' even t$o%g$ it ma' be
necessar' (or t$is &%r&ose to !isregar! t$e more
%s%al or a&&arent im&ort o( t$e lang%age %se!."
2$e constit%tional comman! to incl%!e acts ;i.e.
resol%tions< as a&&ro&riate s%b9ects o( initiative ,as
im&lemente! b' Congress ,$en it enacte! -e&%blic
#ct No. G71C entitle! "#n #ct =rovi!ing (or a )'stem
o( *nitiative an! -e(eren!%m an! #&&ro&riating
F%n!s 2$ere(or." 2$%s its section 1;a< e4&ressl'
incl%!es resol%tions as s%b9ects o( initiatives on
local legislations viB: )ec. 1. De(inition o( 2erms: For
&%r&oses o( t$is #ct t$e (ollo,ing terms s$all meanA
;a< "*nitiative" is t$e &o,er o( t$e &eo&le to &ro&ose
amen!ments to t$e Constit%tion or to &ro&ose an!
enact legislations t$ro%g$ an election calle! (or t$e
&%r&ose.
2$ere are t$ree ;1< s'stems o( initiative namel':
a.1. *nitiative on t$e Constit%tion ,$ic$ re(ers to a
&etition &ro&osing amen!ments to t$e Constit%tion.
a./. *nitiative on stat%tes ,$ic$ re(ers to a &etition
&ro&osing to enact a national legislationA an! a.1.
*nitiative on local legislation ,$ic$ re(ers to a
&etition &ro&osing to enact a regional &rovincial
cit' m%nici&al or baranga' la, resol%tion or
or!inance.
)ection 1G: "Limitations @&on Local Legislative
Bo!ies F #n' &ro&osition on or!inance or resol%tion
a&&rove! t$ro%g$ t$e s'stem o( initiative an!
re(eren!%m as $erein &rovi!e! s$all not be
re&eale! mo!i(ie! or amen!e! b' t$e local
legislative bo!' concerne! ,it$in si4 ;G< mont$s
(rom t$e !ate t$ere(rom.
On 7an%ar' 1G 1881 t$e COM3L3C also
&rom%lgate! its -esol%tion No. /155 entitle! "*n -e
-%les an! -eg%lations Governing t$e Con!%ct o(
*nitiative on t$e Constit%tion an! *nitiative an!
-e(eren!%m on National an! Local La,s." *t
li+e,ise recogniBe! resol%tions as &ro&er s%b9ects o(
initiatives. )ection C #rticle * o( its -%les states:
")co&e o( &o,er o( initiativeF 2$e &o,er o( initiative
ma' be e4ercise! to amen! t$e Constit%tion or to
enact a national legislation a regional &rovincial
15/
cit' m%nici&al or baranga' la, resol%tion or
or!inance.."
2$ere can $ar!l' be an' !o%bt t$at ,$en Congress
enacte! -e&%blic #ct No. G71C it inten! resol%tions
to be &ro&er s%b9ects o( local initiatives.
-es&on!ents !o not give an' reason ,$' resol%tions
s$o%l! not be t$e s%b9ect o( a local initiative.
Distinction bet,een a resol%tion an! an or!inance: a
resol%tion is %se! ,$enever t$e legislat%re ,is$es
to e4&ress an o&inion ,$ic$ is to $ave onl' a
tem&orar' e((ect ,$ile an or!inance is inten!e! to
&ermanentl' !irect an! control matters a&&l'ing to
&ersons or t$ings in general. 2$%s resol%tions are
not normall' s%b9ect to re(eren!%m (or it ma'
!estro' t$e e((icienc' necessar' to t$e s%ccess(%l
a!ministration o( t$e b%siness a((airs o( a cit'.
*n t$e case at benc$ $o,ever it cannot be arg%e!
t$at t$e s%b9ect matter o( t$e resol%tion o( t$e
m%nici&alit' o( Morong merel' tem&oraril' a((ects
t$e &eo&le o( Morong (or it !irects a &ermanent r%le
o( con!%ct or government. 2$e incl%sion o( Morong
as &art o( t$e )%bic )&ecial 3conomic Zone $as (ar
reac$ing im&lications in t$e governance o( its
&eo&le. 2$is is a&&arent (rom a rea!ing o( section
1/ o( -e&%blic #ct No. 7//7 entitle! "#n #ct
#ccelerating t$e Conversion o( Militar' -eservations
*nto Ot$er =ro!%ctive @ses Creating t$e Bases
Conversion an! Develo&ment #%t$orit' For 2$is
=%r&ose =rovi!ing F%n!s 2$ere(or an! For Ot$er
=%r&oses."
Consi!ering t$e lasting c$anges t$at ,ill be ,ro%g$t
in t$e social &olitical an! economic e4istence o(
t$e &eo&le o( Morong b' t$e incl%sion o( t$eir
m%nici&alit' in t$e )%bic )&ecial 3conomic Zone it
is b%t logical to $ear t$eir voice on t$e matter via an
initiative. *t is not material t$at t$e !ecision o( t$e
m%nici&alit' o( Morong (or t$e incl%sion came in t$e
(orm o( a resol%tion (or ,$at matters is its en!%ring
e((ect on t$e ,el(are o( t$e &eo&le o( Morong.
2$ro%g$ an initiative t$e &eo&le ,ere also en!o,e!
,it$ t$e &o,er to enact or re9ect an' act or la, b'
congress or local legislative bo!'. #rticle K*: )ec. 1.
2$e legislative &o,er s$all be veste! in t$e
Congress o( t$e =$ili&&ines ,$ic$ s$all consist o( a
)enate an! a Ho%se o( -e&resentatives e4ce&t to
t$e e4tent reserve! to t$e &eo&le b' t$e &rovisions
on initiative an! re(eren!%m. )ec. 1/. 2$e Congress
s$all as earl' as &ossible &rovi!e (or a s'stem o(
initiative an! re(eren!%m an! t$e e4ce&tions
t$ere(rom ,$ereb' t$e &eo&le can !irectl' &ro&ose
an! enact la,s or a&&rove or re9ect an' act or la,
or &art t$ereo( &asse! b' t$e Congress or local
legislative bo!' a(ter t$e registration o( a &etition
t$ere(or signe! b' at least ten &er cent%m o( t$e
total n%mber o( registere! voters o( ,$ic$ ever'
legislative !istrict m%st be re&resente! b' at least
t$ree &er cent%m o( t$e registere! voters t$ereto.

(ubic Ba# Metropolitan Authorit# v. COM%L%C
Facts: On Marc$ 11 188/ Congress enacte! t$e BCD# ;-# 7//7<
,$ic$ &rovi!e! (or t$e creation o( t$e )%bic 3conomic Zone. *n #&ril
1881 t$e )angg%niang Ba'an o( Morong Bataan &asse!
=amba'ang Ma&as'a$an Bilang 15 )er'e 1881 e4&ressing t$erein
its absol%te conc%rrence as re.%ire! b' sai! )ec. 1/ o( -# 7//7 to
9oin t$e )%bic )&ecial 3conomic Zone. On )e&tember C 1881 t$e
)angg%niang Ba'an o( Morong s%bmitte! =amba'ang Ma&as'a$an
Bilang 15 )er'e 1881 to t$e O((ice o( t$e =resi!ent. On Ma' /0
1881 res&on!ents Garcia Calimbas an! t$eir com&anions (ile! a
&etition ,it$ t$e )angg%niang Ba'an o( Morong to ann%l
=amba'ang Ma&as'a$an Blg. 15 )er'e 1881. 2$e )angg%niang
Ba'an ng Morong acte! %&on t$e &etition o( res&on!ents Garcia
Calimbas et al. b' &rom%lgating =amba'ang Ma&as'a$an Blg. 18
)er'e 1881 re.%esting Congress o( t$e =$ili&&ines so amen!
certain &rovisions o( -# 7//7. Not satis(ie! an! ,it$in 15 !a's
(rom s%bmission o( t$eir &etition $erein res&on!ents resorte! to
t$eir &o,er initiative %n!er t$e LGC )ec. 1// &aragra&$ ;b< ,$ic$
&rovi!es t$at i( no (avorable action t$ereon is ta+en b' t$e
sangg%nian concerne! t$e &ro&onents t$ro%g$ t$eir !%l'
a%t$oriBe! an! registere! re&resentatives ma' invo+e t$eir &o,er
o( initiative giving notice t$ereo( to t$e sangg%niang concerne!.
On 7%l' G 1881 res&on!ent Commission 3n Banc in Comelec
-esol%tion No. 81D1G/1 !enie! t$e &etition (or local initiative b'
$erein &rivate res&on!ents on t$e gro%n! t$at t$e s%b9ect t$ereo(
151
,as merel' a resol%tion ;&amba'ang +a&as'a$an< an! not an
or!inance. On 7%l' 11 1881 &%blic res&on!ent Comelec 3n Banc
;t$r% Comelec -esol%tion no. 81D1G7G< (%rt$er !irecte! its
=rovincial 3lection )%&ervisor to $ol! action on t$e a%t$entication
o( signat%res being solicite! b' &rivate res&on!ents. On #%g%st 1C
1881 &rivate res&on!ents instit%te! a &etition (or certiorari an!
man!am%s be(ore t$is Co%rt against t$e Commission on 3lections
an! t$e )angg%niang Ba'an o( Morong Bataan to set asi!e
Comelec -esol%tion No. 81D1G/1 inso(ar as it !isallo,e! t$e
con!%ct o( a local initiative to ann%l =amba'ang Ma&as'a$an Bilang
15 )er'e 1881 an! Comelec -esol%tion No. 81D1G7G inso(ar as it
&revente! t$e =rovincial 3lection )%&ervisor o( Bataan (rom
&rocee!ing ,it$ t$e a%t$entication o( t$e re.%ire! n%mber o(
signat%res in s%&&ort o( t$e initiative an! t$e gat$ering o(
signat%res. On Febr%ar' 1 188C &%rs%ant to )ec. 1/ o( -# 7//7
t$e =resi!ent o( t$e =$ili&&ines iss%e! =roclamation No. C1/
!e(ining t$e metes an! bo%n!s o( t$e ))3Z. )ai! &roclamation
incl%!e! in t$e ))3Z all t$e lan!s ,it$in t$e (ormer )%bic Naval
Base incl%!ing Gran!e *slan! an! t$at &ortion o( t$e (ormer naval
base ,it$in t$e territorial 9%ris!iction o( t$e M%nici&alit' o( Morong.
On 7%ne 18 188CG res&on!ent Comelec iss%e! -esol%tion No.
/80C a!o&ting t$erein a "Calen!ar o( #ctivities (or local
re(eren!%m on certain m%nici&al or!inance &asse! b' t$e
)angg%niang Ba'an o( Morong Bataan" an! ,$ic$ in!icate!
among ot$ers t$e sc$e!%le! -e(eren!%m Da' ;7%l' /7 188G
)at%r!a'<. On 7%ne /7 188G t$e Comelec &rom%lgate! t$e
assaile! -esol%tion No. /808 &rovi!ing (or "t$e r%les an! g%i!elines
to govern t$e con!%ct o( t$e re(eren!%m &ro&osing to ann%l or
re&eal Ma&as'a$an Blg. 15 )er'e 1881 o( t$e )angg%niang Ba'an
o( Morong Bataan". On 7%l' 15 188G &etitioner instit%te! t$e
&resent &etition (or certiorari an! &ro$ibition contesting t$e vali!it'
o( -esol%tion No. /808 an! alleging inter alia t$at &%blic
res&on!ent "is intent on &rocee!ing ,it$ a local initiative t$at
&ro&oses an amen!ment o( a national la,. . . .

*ss%es: 1. 6ON a bar b' (inal 9%!gment e4ists.
Garcia conten!s t$at t$is Co%rt $a! alrea!' r%le!
,it$ (inalit' in 3nri.%e 2. Garcia et al. vs.
Commission on 3lections et al. on "t$e ver' iss%e
raise! in ;t$e< &etition: ,$et$er or not t$ere can be
an initiative b' t$e &eo&le o( Morong Bataan on t$e
s%b9ect &ro&osition F t$e ver' same &ro&osition it
bears em&$asiBing t$e s%bmission o( ,$ic$ to t$e
&eo&le o( Morong Bataan is no, so%g$t to be
en9oine! b' &etitioner.
)C: 2$e onl' iss%e resolve! in t$e earlier Garcia
case is ,$et$er a m%nici&al resol%tion as contraD
!isting%is$e! (rom an or!inance ma' be t$e &ro&er
s%b9ect o( an initiative an!?or re(eren!%m. 2$e sole
iss%e &resente! b' t$e &lea!ings ,as t$e .%estion
o( ",$et$er or not a )angg%niang Ba'an -esol%tion
can be t$e s%b9ect o( a vali! initiative or
re(eren!%m"
*n t$e &resent case &etitioner is not contesting t$e
&ro&riet' o( a m%nici&al resol%tion as t$e (orm b'
,$ic$ t$ese t,o ne, constit%tional &rerogatives o(
t$e &eo&le ma' be vali!l' e4ercise!. 6$at is at
iss%e $ere is ,$et$er =amba'ang Ma&as'a$an Blg.
15 )er'e 1881 as ,or!e! is s%((icient in (orm an!
s%bstance (or s%bmission to t$e &eo&le (or t$eir
a&&rovalA in (ine ,$et$er t$e Comelec acte!
&ro&erl' an! 9%ri!icall' in &rom%lgating an!
im&lementing -esol%tion No. /808.
6ON t$e COM3L3C committe! a grave ab%se o( !iscretion
in &rom%lgating an! im&lementing -esol%tion No. /808.
:3).
2o begin ,it$ t$e &rocess starte! b' &rivate
res&on!ents ,as an *N*2*#2*K3 b%t Comelec ma!e
&re&arations (or a -3F3-3ND@M onl'. *n (act in t$e
bo!' o( t$e -esol%tion 11 as re&ro!%ce! in t$e
(ootnote belo, t$e ,or! "re(eren!%m" is re&eate!
at least /7 times b%t "initiative" is not mentione! at
all. 2$e Comelec labele! t$e e4ercise as a
"-e(eren!%m"A t$e co%nting o( votes ,as entr%ste!
to a "-e(eren!%m Committee"A t$e !oc%ments ,ere
calle! "re(eren!%m ret%rns"A t$e canvassers
"-e(eren!%m Boar! o( Canvassers" an! t$e ballots
t$emselves bore t$e !escri&tion "re(eren!%m". 2o
re&eat not once ,as t$e ,or! "initiative" %se! in
sai! bo!' o( -esol%tion No. /808. #n! 'et t$is
e4ercise is %n.%estionabl' an *N*2*#2*K3.
"*nitiative" is t$e &o,er o( t$e &eo&le to &ro&ose
amen!ments to t$e Constit%tion or to &ro&ose an!
enact legislations t$ro%g$ an election calle! (or t$e
150
&%r&ose. 1 s'stems: 1. *nitiative on t$e Constit%tion
,$ic$ re(ers to a &etition &ro&osing amen!ments to
t$e Constit%tionA /. *nitiative on stat%tes ,$ic$
re(ers to a &etition &ro&osing to enact a national
legislationA an! 1. *nitiative on local legislation ,$ic$
re(ers to a &etition &ro&osing to enact a regional
&rovincial cit' m%nici&al or baranga' la,
resol%tion or or!inance.
"*n!irect initiative" is e4ercise o( initiative b' t$e
&eo&le t$ro%g$ a &ro&osition sent to Congress or
t$e local legislative bo!' (or action.
"-e(eren!%m" is t$e &o,er o( t$e electorate to
a&&rove or re9ect a legislation t$ro%g$ an election
calle! (or t$e &%r&ose. *t ma' be o( t,o classes
namel': 1. -e(eren!%m on stat%tes ,$ic$ re(ers to a
&etition to a&&rove or re9ect an act or la, or &art
t$ereo( &asse! b' CongressA an! /. -e(eren!%m on
local la, ,$ic$ re(ers to a &etition to a&&rove or
re9ect a la, resol%tion or or!inance enacte! b'
regional assemblies an! local legislative bo!ies.
Cr%B: *nitiative D "&o,er o( t$e &eo&le to &ro&ose
bills an! la,s an! to enact or re9ect t$em at t$e
&olls in!e&en!ent o( t$e legislative assembl'."
re(eren!%m D "is t$e rig$t reserve! to t$e &eo&le to
a!o&t or re9ect an' act or meas%re ,$ic$ $as been
&asse! b' a legislative bo!' an! ,$ic$ in most
cases ,o%l! ,it$o%t action on t$e &art o( electors
become a la,."
LGC: Local initiative is t$e legal &rocess ,$ereb' t$e
registere! voters o( local government %nit ma'
!irectl' &ro&ose enact or amen! an' or!inance.
Local re(eren!%m is t$e legal &rocess ,$ereb' t$e
registere! voters o( t$e local government %nits ma'
a&&rove amen! or re9ect an' or!inance enacte! b'
t$e sangg%nian. 2$e local re(eren!%m s$all be $el!
%n!er t$e control an! !irection o( t$e Comelec
,it$in si4t' ;G5< !a's in case o( &rovinces an! cities
(ort'D(ive ;0C< !a's in case o( m%nici&alities an!
t$irt' ;15< !a's in case o( barangga's. 2$e Comelec
s$all certi(' an! &roclaim t$e res%lts o( t$e sai!
re(eren!%m.
)C: initiative is resorte! to ;or initiate!< b' t$e
&eo&le !irectl' eit$er beca%se t$e la,Dma+ing bo!'
(ails or re(%ses to enact t$e la, or!inance
resol%tion or act t$at t$e' !esire or beca%se t$e'
,ant to amen! or mo!i(' one alrea!' e4isting.
@n!er )ec. 11 o( -.#. G71C t$e local legislative
bo!' is given t$e o&&ort%nit' to enact t$e &ro&osal.
*( it re(%ses?neglects to !o so ,it$in t$irt' ;15< !a's
(rom its &resentation t$e &ro&onents t$ro%g$ t$eir
!%l'Da%t$oriBe! an! registere! re&resentatives ma'
invo+e t$eir &o,er o( initiative giving notice t$ereo(
to t$e local legislative bo!' concerne!. )$o%l! t$e
&ro&onents be able to collect t$e n%mber o( signe!
con(ormities ,it$in t$e &erio! grante! b' sai!
stat%te t$e Commission on 3lections "s$all t$en set
a !ate (or t$e initiative ;not re(eren!%m< at ,$ic$
t$e &ro&osition s$all be s%bmitte! to t$e registere!
voters in t$e local government %nit concerne! .
On t$e ot$er $an! in a local re(eren!%m t$e la,D
ma+ing bo!' s%bmits to t$e registere! voters o( its
territorial 9%ris!iction (or a&&roval or re9ection an'
or!inance or resol%tion ,$ic$ is !%l' enacte! or
a&&rove! b' s%c$ la,Dma+ing a%t$orit'. )ai!
re(eren!%m s$all be con!%cte! also %n!er t$e
control an! !irection o( t$e Commission on
3lections.
6$ile initiative is entirel' t$e ,or+ o( t$e electorate
re(eren!%m is beg%n an! consente! to b' t$e la,D
ma+ing bo!'. *nitiative is a &rocess o( la,Dma+ing
b' t$e &eo&le t$emselves ,it$o%t t$e &artici&ation
an! against t$e ,is$es o( t$eir electe!
re&resentatives ,$ile re(eren!%m consists merel'
o( t$e electorate a&&roving or re9ecting ,$at $as
been !ra,n %& or enacte! b' a legislative bo!'.
Hence t$e &rocess an! t$e voting in an initiative
are %n!erstan!abl' more com&le4 t$an in a
re(eren!%m ,$ere e4&ecte!l' t$e voters ,ill sim&l'
,rite eit$er ":es" o( "No" in t$e ballot.
From t$e above !i((erentiation it (ollo,s t$at t$ere
is nee! (or t$e Comelec to s%&ervise an initiative
more closel' its a%t$orit' t$ereon e4ten!ing not
onl' to t$e co%nting an! canvassing o( votes b%t
15C
also to seeing to it t$at t$e matter or act s%bmitte!
to t$e &eo&le is in t$e &ro&er (orm an! lang%age so
it ma' be easil' %n!erstoo! an! vote! %&on b' t$e
electorate. 2$is is es&eciall' tr%e ,$ere t$e
&ro&ose! legislation is lengt$' an! com&licate! an!
s$o%l! t$%s be bro+en !o,n into several
a%tonomo%s &arts eac$ s%c$ &art to be vote! %&on
se&aratel'. Care m%st also be e4ercise! t$at ";n<o
&etition embracing more t$an one s%b9ect s$all be
s%bmitte! to t$e electorate" alt$o%g$ "t,o or more
&ro&ositions ma' be s%bmitte! in an initiative".
*n initiative an! re(eren!%m t$e Comelec e4ercises
a!ministration an! s%&ervision o( t$e &rocess itsel(
a+in to its &o,ers over t$e con!%ct o( elections.
2$ese la,Dma+ing &o,ers belong to t$e &eo&le
$ence t$e res&on!ent Commission cannot control or
c$ange t$e s%bstance or t$e content o( legislation.
*n t$e e4ercise o( its a%t$orit' it ma' ;in (act it
s$o%l! $ave !one so alrea!'< iss%e relevant an!
a!e.%ate g%i!elines an! r%les (or t$e or!erl'
e4ercise o( t$ese "&eo&leD&o,er" (eat%res o( o%r
Constit%tion.
6ON 6it$!ra,al o( #!$erence an! *m&osition o(
Con!itionalities are @ltra Kires.
)C: &remat%reO 2$e m%nici&al resol%tion is still in
t$e &ro&osal stage. *t is not 'et an a&&rove! la,.
)$o%l! t$e &eo&le re9ect it t$en t$ere ,o%l! be
not$ing to contest an! to a!9%!icate. *t is onl' ,$en
t$e &eo&le $ave vote! (or it an! it $as become an
a&&rove! or!inance or resol%tion t$at rig$ts an!
obligations can be en(orce! or im&lemente!
t$ere%n!er. #t t$is &oint it is merel' a &ro&osal an!
t$e ,rit or &ro$ibition cannot iss%e %&on a mere
con9ect%re or &ossibilit'. Constit%tionall' s&ea+ing
co%rts ma' !eci!e onl' act%al controversies not
$'&ot$etical .%estions or cases.

Ortiz v. Posaas
Facts: )even o( t$e t$irteen members &resent incl%!ing t$e
&resi!ent o( t$e m%nici&al co%ncil o( 2abaco #lba' vote! in (avor
o( Or!inance No. /C concerning coc+&its an! si4 members vote!
against t$e or!inance ,it$ t$ree members absent.
*))@3: 6ON t$e or!inance is vali!. NO.
)ection //0 o( t$e #!ministrative Co!e rea!s as
(ollo,s: 7o%rnal o( =rocee!ings F Ma9orities
necessar' (or transaction o( b%siness. F 2$e co%ncil
s$all +ee& a 9o%rnal o( its o,n &rocee!ings. 2$e
a'es an! noes s$all be ta+en %&on t$e &assage o(
all or!inances %&on all &ro&ositions to create an'
liabilit' against t$e m%nici&alit' an! %&on an' ot$er
&ro&osition %&on t$e re.%est o( an' member an!
t$e' s$all be entere! %&on t$e 9o%rnal. 2$e
a((irmative vote o( a ma9orit' o( all t$e members o(
t$e m%nici&al co%ncil s$all be necessar' to t$e
&assage o( an' or!inance or o( an' &ro&osition
creating in!ebte!nessA b%t ot$er meas%res e4ce&t
as ot$er,ise s&eciall' &rovi!e! s$all &revail %&on
t$e ma9orit' vote o( t$e members &resent at an'
meeting !%l' calle! an! $el!.
2$e la, is clear. *t nee!s onl' a&&lication not
inter&retation. 6$ile t$e )&anis$ te4t ma' be
ambig%o%s t$e 3nglis$ te4t ,$ic$ governs is not.
2$e la, is entirel' consistent in conte4t. 2$e a'es
an! noes are ta+en %&on ;1< t$e &assage o( all
or!inances ;/< all &ro&ositions to create an' liabilit'
against t$e m%nici&alit' an! ;1< an' ot$er
&ro&osition %&on t$e re.%est o( an' member. 2$e
same i!ea is carrie! into t$e s%ccee!ing sentence.
For t$e &assage o( ;1< an' or!inance or ;/< an'
&ro&osition creating in!ebte!ness t$e a((irmative
vote o( a ma9orit' o( all t$e members o( t$e
m%nici&al co%ncil s$all be necessar'. Ot$er
meas%res &revail %&on t$e ma9orit' vote o( t$e
members &resent "Creating in!ebte!ness" re(ers to
"&ro&osition" an! not to "or!inance." 2$e contention
t$at onl' or!inances creating in!ebte!ness re.%ire
t$e a&&roval o( a ma9orit' o( all t$e members o( t$e
m%nici&al co%ncil is !evoi! o( merit.
Corroborative a%t$orit' is reall' s%&er(l%o%s.
Nevert$eless ,e ,o%l! invite attention to t$e case
o( McLean vs. Cit' o( 3ast )t. Lo%is ;U185GV /// *ll.
15G
C15<. )ection 11 o( t$e #ct (or t$e incor&oration o(
cities an! villages in t$e )tate o( *llinois &rovi!e!:
"2$e 'eas an! na's s$all be ta+en %&on t$e &assage
o( all or!inances an! on all &ro&ositions to create
an' liabilit' against t$e cit' or (or t$e e4&en!it%re
or a&&ro&riation o( its mone' an! in all ot$er cases
at t$e re.%est o( an' member ,$ic$ s$all be
entere! on t$e 9o%rnal o( its &rocee!ingsA an! t$e
conc%rrence o( a ma9orit' o( all t$e members
electe! in t$e cit' co%ncil s$all be necessar' to t$e
&assage o( an' s%c$ or!inance or &ro&osition:
=rovi!e! it s$all re.%ire t,oDt$ir!s o( all t$e
al!ermen elect to sell an' cit' or sc$ool &ro&ert'"
Commenting on t$is &rovision o( la, t$e )%&reme
Co%rt o( *llinois t$ro%g$ 7%stice Cart,rig$t
observe!: )ome o( t$e co%nsel (or a&&ellee arg%e
t$at section 11 relates onl' to or!inances an!
&ro&ositions creating a liabilit' against a cit' or
&rovi!ing (or t$e e4&en!it%re or a&&ro&riation o( its
mone' an! t$at all ot$er or!inances ma' be &asse!
b' a ma9orit' o( a .%or%m. 2$e' sa' t$at it is not
%n%s%al (or co%rts in t$e constr%ction o( stat%tes to
s%bstit%te one ,or! (or anot$er ,$ere t$e &lain
meaning o( t$e stat%te ,ill 9%sti(' it an! t$at b'
eliminating some ,or!s an! s%bstit%ting ot$ers t$is
section ,ill e4&ress ,$at t$e' t$in+ ,as t$e
intention o( t$e legislat%re. *t is t$e r%le t$at ,$ere
t$e intention o( t$e legislat%re is ascertaine! ,it$
reasonable certaint' an! it a&&ears t$at ,or!s $ave
been %se! inconsistent ,it$ s%c$ intention a ,or!
erroneo%sl' %se! (or anot$er ma' be eliminate! an!
t$e &ro&er ,or! s%bstit%te!. 6$ere t$e conte4t
a((or!s t$e means o( correcting a mista+e in t$e %se
o( lang%age t$e correction ma' be ma!e (or t$e
&%r&ose o( giving e((ect to t$e intention &lainl'
mani(este! in t$e act as a ,$ole. B%t ,e !o not
agree ,it$ t$e t$eor' t$at t$e legislat%re in t$is
instance inten!e! to limit t$e re.%irement o( a
ma9orit' vote to or!inances creating a liabilit' or
a&&ro&riating mone'. *n o%r o&inion to ma+e t$e
c$anges s%ggeste! ,o%l! be merel' 9%ggling ,it$
t$e ,or!s o( t$e stat%te to give it a !i((erent
meaning (rom t$at ,$ic$ ,as inten!e!. 2$e la,
t$e &assage o( all or!inances an! t$e conc%rrence
o( a ma9orit' o( t$e legislative bo!' is necessar' to
t$eir &assage. 6e recogniBe! t$at constr%ction o(
t$e stat%te in Hibbar! P Co. vs. Cit' o( C$icago 171
*ll. 81. *( a &ro&osition not in t$e (orm o( an
or!inance creates an' liabilit' or &rovi!es (or t$e
e4&en!it%re or a&&ro&riation o( mone' t$e
re.%irement is t$e same ,$ile as to ot$er
&ro&ositions ,$et$er t$e 'eas an! na's are
entere! %&on t$e 9o%rnal or not t$e ma9orit' o( a
.%or%m is s%((icient.
2$e basic i!ea o( t$e legislative bo!' to ma+e
im&ossible t$e a&&roval o( or!inances or o(
&ro&ositions creating in!ebte!ness b' minorit'
votes o( m%nici&al co%ncils at meetings $astil'
calle! is ,ise. Legislative intention s$o%l! be
e((ect%ate!.
)ection ///0 o( t$e #!ministrative Co!e re.%iring in man!ator'
lang%age t$e a((irmative vote o( a ma9orit' o( all t$e members o(
t$e m%nici&al co%ncil (or t$e &assage o( an' or!inance ,$et$er or
not an or!inance creating in!ebte!ness an or!inance &asse! b'
less t$an t$at ma9orit' is invali!. Or!inance No. /C o( 2abaco
#lba' is voi!.
Cit# o! Manila v. Laguio
Facts: 2$e Malate 2o%rist Develo&ment Cor&oration ;M2DC< b%ilt
an! o&ene! Kictoria Co%rt in Malate ,$ic$ ,as license! as a motel
alt$o%g$ !%l' accre!ite! ,it$ t$e DO2C as a $otel. M2DC (ile! a
&etition (or !eclarator' relie( against t$e Cit' o( Manila Lim
;ma'or< #tienBa ;viceDma'or< an! t$e members o( t$e cit' co%ncil
o( Manila &ra'ing t$at t$e Or!inance t$e' enacte! ,$ic$
&ro$ibite! motels an! inns be !eclare! %nconstit%tional. 2$e
Or!inance &ro$ibite! t$e establis$ment or o&eration o( b%sinesses
&rovi!ing am%sement services or entertainment ,$ere ,omen
are %se! as tools in entertainment an! ,$ic$ ten! to !ist%rb t$e
comm%nit' anno' t$e in$abitants an! a!versel' a((ect t$e social
an! moral ,el(are o( t$e comm%nit' in t$e 3rmitaDMalate area.
)%c$ b%sinesses incl%!e sa%na &arlors massage &arlors +arao+e
bars cl%bs !ance $alls motels an! inns.
M2DC: Motels an! inns s$o%l! not $ave been &ro$ibite! as t$e' are
not establis$ments (or am%sement or entertainmentA neit$er ,ere
157
t$e' services or (acilities (or entertainment an! !i! not %se ,omen
as tools etc. #lso t$e Or!inance ,as %nconstit%tional an! voi!
beca%se ;1< 2$e Cit' Co%ncil $as no &o,er to &ro$ibit t$e o&eration
o( motels as t$e LGC grante! onl' t$e &o,er to reg%late t$e
establis$ment o&eration an! maintenance o( motels etc. ;/< *t is
violative o( =D 088 ,$ic$ !eclare! &ortions o( t$e 3rmitaDMalate
area as a commercial Bone ,it$ restrictions ;1< *t is not a &ro&er
e4ercise o( &olice &o,er as t$ere is no relation to legitimate
m%nici&al interests so%g$t to be &rotecte! ;0< *t is an e4 &ost (acto
la, an! ;C< *t violates M2DC>s constit%tional rig$ts con(iscator'
an! is an invasion o( &ro&ert' rig$ts also violates t$e e.%al
&rotection cla%se.
Manila: 2$e Cit' Co%ncil $a! t$e &o,er to &ro$ibit certain (orms o(
entertainment in or!er to &rotect t$e social an! moral ,el(are o(
t$e comm%nit' as &rovi!e! in )ec. 0C8 ;a< 0 ;vii< o( t$e LGC.
M,ong )ing vs. Cit' o( Manila: &o,er o( reg%lation incl%!es t$e
&o,er to control govern an! restrain &laces o( e4$ibition an!
am%sement. 2$is is also in con9%nction ,it$ its &olice &o,er as
(o%n! in -evise! C$arter o( Manila.
7%!ge Lag%io iss%e! an e4D&arte 2-O against t$e en(orcement o(
t$e Or!inance. #(ter trial $e ren!ere! a !ecision en9oining t$e Cit'
o( Manila (rom im&lementing t$e Or!inance. 2$e Cit' o( Manila t$en
(ile! a &etition assailing t$e Decision ren!ere! b' Lag%io.
*ss%e: 6ON t$e Or!inance is %nconstit%tional. :3).
2o be vali! an or!inance m%st con(orm to t$e
(ollo,ing s%bstantive re.%irements: ;1< *t m%st not
contravene t$e Constit%tion or an' stat%teA ;/< M%st
not be %n(air or o&&ressiveA ;1< M%st not be &artial
or !iscriminator'A ;0< M%st not &ro$ibit b%t ma'
reg%late tra!eA ;C< M%st be general an! consistent
,it$ &%blic &olic'A ;C< M%st not be %nreasonable.
#s regar!s t$e (irst criterion t$ere are /
re.%irements: *t m%st &ass m%ster %n!er t$e test o(
constit%tionalit' an! t$e test o( consistenc' ,it$
&revailing la,s. LG@s are able to legislate onl' b'
virt%e o( t$eir !erivative legislative &o,er a
!elegation o( legislative &o,er (rom Congress. 2$e
!elegate cannot be s%&erior to t$e &rinci&al.
2$e means em&lo'e! b' t$e Or!inance (or t$e
ac$ievement o( its &%r&oses t$e governmental
inter(erence itsel( in(ringes on t$e constit%tional
g%arantees o( a &ersonHs (%n!amental rig$t to
libert' an! &ro&ert'. Motel &atrons ,$o are single
an! %nmarrie! ma' invo+e t$is rig$t to a%tonom' to
cons%mmate t$eir bon!s in intimate be it stresse!
t$at t$eir se4%al con!%ct ,it$in t$e motelHs
&remises consens%al se4%al be$avior !oes not
contravene an' (%n!amental state &olic' as
containe! in t$e Constit%tion. #!%lts $ave a rig$t to
c$oose to (orge s%c$ relations$i&s ,it$ ot$ers in t$e
con(ines o( t$eir o,n &rivate lives an! still retain
t$eir !ignit' as (ree &ersons. 2$eir rig$t to libert'
%n!er t$e !%e &rocess cla%se gives t$em t$e (%ll
rig$t to engage in t$eir con!%ct ,it$o%t intervention
o( t$e government as long as t$e' !o not r%n a(o%l
o( t$e la,. Libert' s$o%l! be t$e r%le an! restraint
t$e e4ce&tion.
Libert' in t$e constit%tional sense not onl' means
(ree!om (rom %nla,(%l government restraintA it
m%st incl%!e &rivac' as ,ell i( it is to be a
re&ositor' o( (ree!om. 2$e rig$t to be let alone it is
t$e most com&re$ensive o( rig$ts an! is t$e
beginning o( all (ree!om an! t$e rig$t most val%e!
b' civiliBe! men. 2$e rig$t to &rivac' is a
constit%tional rig$t t$e invasion o( ,$ic$ s$o%l! be
9%sti(ie! b' a com&elling state interest.
2$e Or!inance ,as &asse! b' t$e Cit' Co%ncil in t$e
e4ercise o( its &olice &o,er as (o%n! in )ec. 1G o(
t$e LGC. 2$is &olice &o,er ,$ile (arDreac$ing is
s%bor!inate to constit%tional limitations t$e e4ercise
m%st be reasonable an! (or t$e &%blic goo!. 2$e
Or!inance violates t$e 1887 Constit%tion t$e
relevant &rovisions o( ,$ic$ are #rt. ** )ecs. C an!
10 an! #rt. *** )ecs. 1 an! 8.
2o be constit%tional t$e e4ercise o( &olice &o,er
not onl' m%st it a&&ear t$at t$e interests o( t$e
&%blic generall' as !isting%is$e! (rom t$ose o( a
&artic%lar class re.%ire an inter(erence ,it$ &rivate
rig$ts b%t t$e means a!o&te! m%st be reasonabl'
necessar' (or t$e accom&lis$ment o( t$e &%r&ose
an! not %n!%l' o&&ressive %&on in!ivi!%als. *t m%st
be evi!ent t$at no ot$er alternative (or t$e
accom&lis$ment o( t$e &%r&ose less intr%sive o(
158
&rivate rig$ts can ,or+. # reasonable relation m%st
e4ist bet,een t$e &%r&oses o( t$e &olice meas%re
an! t$e means em&lo'e! (or its accom&lis$ment. *n
t$is case t$e means em&lo'e! is o&&ressive an!
%nreasonable.
2$e Or!inance ,as enacte! to a!!ress an! arrest
t$e social ills &%r&orte!l' s&a,n as it s%bstantiall'
!ivests t$e res&on!ent o( t$e bene(icial %se o( its
&ro&ert'. 2$e Or!inance in )ection 1 (orbi!s t$e
r%nning o( t$e en%merate! b%sinesses in t$e 3rmitaD
Malate area an! in )ection 1 instr%cts its
o,ners?o&erators to ,in! %& b%siness o&erations or
to trans(er o%tsi!e t$e area or convert sai!
b%sinesses into allo,e! b%sinesses. #n or!inance
,$ic$ &ermanentl' restricts t$e %se o( &ro&ert' t$at
it cannot be %se! (or an' reasonable &%r&ose goes
be'on! reg%lation an! m%st be recogniBe! as a
ta+ing o( t$e &ro&ert' ,it$o%t 9%st com&ensation. *t
is intr%sive an! violative o( t$e &rivate &ro&ert'
rig$ts o( in!ivi!%als.
2$e Cit' o( Manila cannot ta+e re(%ge in classi('ing
t$e meas%re as a Boning or!inance. # Boning
or!inance alt$o%g$ a vali! e4ercise o( &olice &o,er
,$ic$ limits a ",$olesome" &ro&ert' to a %se ,$ic$
cannot reasonabl' be ma!e o( it constit%tes t$e
ta+ing o( s%c$ &ro&ert' ,it$o%t 9%st com&ensation.
=rivate &ro&ert' ,$ic$ is not no4io%s or inten!e! (or
no4io%s &%r&oses ma' not b' Boning be !estro'e!
,it$o%t com&ensation.
Distinction s$o%l! be ma!e bet,een !estr%ction
(rom necessit' an! eminent !omain. =ro&ert' ta+en
in t$e e4ercise o( &olice &o,er is !estro'e! beca%se
it is no4io%s or inten!e! (or a no4io%s &%r&ose ,$ile
t$e &ro&ert' ta+en %n!er t$e &o,er o( eminent
!omain is inten!e! (or a &%blic %se or &%r&ose an!
is t$ere(ore ",$olesome." *( it be o( &%blic bene(it
t$at a ,$olesome &ro&ert' remains %n%se! or
relegate! to a &artic%lar &%r&ose t$en certainl' t$e
&%blic s$o%l! bear t$e cost o( reasonable
com&ensation (or t$e con!emnation o( &rivate
&ro&ert' (or &%blic %se! b' t$e establis$ments in
t$e 3rmitaDMalate area.
2$e closing !o,n an! trans(er o( b%sinesses or t$eir
conversion into b%sinesses allo,e! %n!er t$e
Or!inance $ave no reasonable relation to t$e
accom&lis$ment o( its &%r&oses. 2$e Cit' Co%ncil
instea! s$o%l! reg%late $%man con!%ct t$at occ%rs
insi!e t$e establis$ments b%t not to t$e !etriment
o( libert' an! &rivac' ,$ic$ are covenants
&remi%ms an! blessings o( !emocrac'.
D%e &rocess (%rnis$es a stan!ar! to ,$ic$
governmental action s$o%l! con(orm in or!er t$at
!e&rivation o( li(e libert' or &ro&ert' is vali!.
2$e Or!inance (ails to set %& an' stan!ar! to g%i!e
or limit t$e &etitionersH actions. *t in no ,a' controls
or g%i!es t$e !iscretion veste! in t$em. *t &rovi!es
no !e(inition o( t$e establis$ments covere! b' it an!
it (ails to set (ort$ t$e con!itions ,$en t$e
establis$ments come ,it$in its ambit o( &ro$ibition.
2$e Or!inance con(ers %&on t$e ma'or arbitrar' an!
%nrestricte! &o,er to close !o,n establis$ments.
Or!inances &lacing restrictions %&on t$e la,(%l %se
o( &ro&ert' m%st in or!er to be vali! an!
constit%tional s&eci(' t$e r%les an! con!itions to be
observe! an! con!%ct to avoi!A an! m%st not a!mit
o( t$e e4ercise or o( an o&&ort%nit' (or t$e
e4ercise o( %nbri!le! !iscretion b' t$e la,
en(orcers in carr'ing o%t its &rovisions. )imilarl' t$e
Or!inance !oes not s&eci(' t$e stan!ar!s to
ascertain ,$ic$ establis$ments "ten! to !ist%rb t$e
comm%nit'" "anno' t$e in$abitants" an!
"a!versel' a((ect t$e social an! moral ,el(are o( t$e
comm%nit'." 2$ere are no com&re$ensible
stan!ar!s to g%i!e t$e la, en(orcers in carr'ing o%t
its &rovisions.
3.%al &rotection re.%ires t$at all &ersons or t$ings
similarl' sit%ate! s$o%l! be treate! ali+e bot$ as to
rig$ts con(erre! an! res&onsibilities im&ose!.
)imilar s%b9ects in ot$er ,or!s s$o%l! not be
treate! !i((erentl' so as to give %n!%e (avor to
some an! %n9%stl' !iscriminate against ot$ers.
Legislative bo!ies are allo,e! to classi(' t$e
s%b9ects o( legislation. *( t$e classi(ication is
reasonable t$e la, ma' o&erate onl' on some an!
158
not all o( t$e &eo&le ,it$o%t violating t$e e.%al
&rotection cla%se. 2$e classi(ication m%st as an
in!is&ensable re.%isite not be arbitrar'. 2o be
vali! it m%st con(orm to t$e (ollo,ing
re.%irements:1< *t m%st be base! on s%bstantial
!istinctions. /< *t m%st be germane to t$e &%r&oses
o( t$e la,. 1< *t m%st not be limite! to e4isting
con!itions onl'. 0< *t m%st a&&l' e.%all' to all
members o( t$e class.
#ccor!ing to t$e )C: ;1< No s%bstantial !istinctions
bet,een motels inns &ension $o%ses $otels
lo!ging $o%ses an! ot$er similar establis$ments. #ll
are commercial establis$ments &rovi!ing lo!ging.
2$e classi(ication is t$%s invali! ;similar s%b9ects are
not similarl' treate!< an! arbitrar' ;it !oes not rest
on s%bstantial !istinctions bearing a 9%st an! (air
relation to t$e &%r&ose o( t$e Or!inance< ;/< No
logic (or &ro$ibiting t$e b%siness an! o&eration o(
motels in t$e 3rmitaDMalate area b%t not o%tsi!e o(
t$is area. ;1< 2$e stan!ar! ",$ere ,omen are %se!
as tools (or one o( t$e $inte! entertainment" is also
!iscriminator' as &rostit%tion ills t$e Or!inance is
not a &ro(ession e4cl%sive aims to banis$ to ,omen.
Bot$ men an! ,omen $ave an e.%al &ro&ensit' to
engage in &rostit%tion. 2$is !iscrimination base! on
gen!er violates e.%al &rotection as it is not
s%bstantiall' relate! to im&ortant government
ob9ectives.
#s to consistenc' ,it$ &revailing la,s: ;1< 2$e
Or!inance contravenes t$e LGC. @n!er t$e LGC
LG@s are em&o,ere! to reg%late an! not &ro$ibit
t$e establis$ments en%merate! in )ec. 1 o( t$e
Or!inance. 2$e &o,er o( t$e Cit' Co%ncil to reg%late
b' or!inances t$e establis$ment o&eration an!
maintenance o( motels $otels an! ot$er similar
establis$ments is (o%n! in )ection 0C8 ;a< 0 ;iv<
,$ile its &o,er to reg%late t$e establis$ment
o&eration an! maintenance o( an' entertainment or
am%sement (acilities an! to &ro$ibit certain (orms
o( am%sement or entertainment is &rovi!e! %n!er
)ection 0C8 ;a< 0 ;vii<. Clearl' t$en t$e onl' &o,er
o( t$e Cit' Co%ncil to legislate relative to t$ese
establis$ments is to reg%late t$em to &romote t$e
general ,el(are. 2$e Co!e still ,it$$ol!s (rom cities
t$e &o,er to s%&&ress an! &ro$ibit altoget$er t$e
establis$ment o&eration an! maintenance o( s%c$
establis$ments. 2$e ,or! reg%late incl%!es t$e
&o,er to control govern an! restrain b%t it s$o%l!
not be constr%e! as s'non'mo%s ,it$ s%&&ress or
&ro$ibit. #s a general r%le ,$en a m%nici&al
cor&oration is s&eci(icall' given a%t$orit' or &o,er
to reg%late or to license an! reg%late t$e li.%or
tra((ic &o,er to &ro$ibit is im&lie!l' ,it$$el!.
Congress %ne.%ivocabl' s&eci(ie! t$e
establis$ments an! (orms o( am%sement or
entertainment s%b9ect to reg%lation among ,$ic$
are beer$o%ses $otels motels inns &ension
$o%ses lo!ging $o%ses an! ot$er similar
establis$ments ;)ection 0C8 ;a< 0 ;iv<< &%blic
!ancing sc$ools &%blic !ance $alls sa%na bat$s
massage &arlors an! ot$er &laces (or entertainment
or am%sement ;)ection 0C8 ;a< 0 ;vii<<. 2$is
en%meration t$ere(ore cannot be incl%!e! as among
"ot$er events or activities (or am%sement or
entertainment &artic%larl' t$ose ,$ic$ ten! to
!ist%rb t$e comm%nit' or anno' t$e in$abitants" or
"certain (orms o( am%sement or entertainment"
,$ic$ t$e Cit' Co%ncil ma' s%s&en! s%&&ress or
&ro$ibit.
2$e r%le is t$at t$e Cit' Co%ncil $as onl' s%c$
&o,ers as are e4&ressl' grante! to it an! t$ose
,$ic$ are necessaril' im&lie! or inci!ental to t$e
e4ercise t$ereo(. B' reason o( its limite! &o,ers an!
t$e nat%re t$ereo( sai! &o,ers are to be constr%e!
strictissimi 9%ris an! an' !o%bt or ambig%it' arising
o%t o( t$e terms %se! in granting sai! &o,ers m%st
be constr%e! against t$e Cit' Co%ncil. Moreover it
is a general r%le in stat%tor' constr%ction t$at t$e
e4&ress mention o( one &erson t$ing or
conse.%ence is tantamo%nt to an e4&ress e4cl%sion
o( all ot$ers.
#lso t$e Co!e being a later e4&ression o( t$e
legislative ,ill m%st necessaril' &revail an! overri!e
t$e earlier la, t$e -evise! C$arter o( Manila. #s
115
bet,een t,o la,s on t$e same s%b9ect matter
,$ic$ are irreconcilabl' inconsistent t$at ,$ic$ is
&asse! later &revails since it is t$e latest
e4&ression o( legislative ,ill. *n a!!ition )ection
C10;(< o( t$e Co!e states t$at "#ll general an!
s&ecial la,s acts cit' c$arters !ecrees e4ec%tive
or!ers &roclamations an! a!ministrative
reg%lations or &art or &arts t$ereo( ,$ic$ are
inconsistent ,it$ an' o( t$e &rovisions o( t$is Co!e
are $ereb' re&eale! or mo!i(ie! accor!ingl'." 2$%s
s%bmitting to &etitionersH inter&retation t$at t$e
-evise! C$arter o( Manila em&o,ers t$e Cit'
Co%ncil to &ro$ibit motels t$at &ortion o( t$e
C$arter stating s%c$ m%st be consi!ere! re&eale!
b' t$e Co!e as it is at variance ,it$ t$e latterHs
&rovisions granting t$e Cit' Co%ncil mere reg%lator'
&o,ers.
Manila also cannot see+ cover %n!er t$e general
,el(are cla%se a%t$oriBing t$e abatement o(
n%isances ,it$o%t 9%!icial &rocee!ings. 2$at tenet
a&&lies to a n%isance &er se or one ,$ic$ a((ects
t$e imme!iate sa(et' o( &ersons an! &ro&ert' an!
ma' be s%mmaril' abate! %n!er t$e %n!e(ine! la,
o( necessit'. *t cannot be sai! t$at motels are
in9%rio%s to t$e rig$ts o( &ro&ert' $ealt$ or com(ort
o( t$e comm%nit'. *t is a legitimate b%siness. *( it be
a n%isance &er acci!ens it ma' be so &roven in a
$earing con!%cte! (or t$at &%r&ose. # motel is not
&er se a n%isance ,arranting its s%mmar'
abatement ,it$o%t 9%!icial intervention.
2$e Cit' Co%ncil ,as con(erre! &o,ers to &revent
an! &ro$ibit certain activities an! establis$ments in
)ection 0C8 ;1< ;v<. *( it ,ere t$e intention o(
Congress to con(er %&on t$e Cit' Co%ncil t$e &o,er
to &ro$ibit t$e establis$ments en%merate! in
)ection 1 o( t$e Or!inance it ,o%l! $ave so
!eclare! in %ncertain terms b' a!!ing t$em to t$e
list o( t$e matters it ma' &ro$ibit %n!er t$e aboveD
.%ote! )ection. 2$e Or!inance no, vainl' attem&ts
to l%m& t$ese establis$ments ,it$ $o%ses o( illD
re&%te an! e4&an! t$e Cit' Co%ncilHs &o,ers in t$e
secon! an! t$ir! cla%ses o( )ection 0C8 ;a< 0 ;vii< o(
t$e Co!e in an e((ort to overreac$ its &ro$ibitor'
&o,ers. *t is evi!ent t$at t$ese establis$ments ma'
onl' be reg%late! in t$eir establis$ment o&eration
an! maintenance.
*t is im&ortant to !isting%is$ t$e &%nis$able
activities (rom t$e establis$ments t$emselves. 2$at
t$ese establis$ments are recogniBe! legitimate
enter&rises can be gleane! (rom anot$er )ection o(
t$e Co!e. )ection 111 %n!er t$e 2itle on Local
Government 2a4ation e4&ressl' mentione!
&ro&rietors or o&erators o( massage clinics sa%na
2%r+is$ an! ),e!is$ bat$s $otels motels an!
lo!ging $o%ses as among t$e "contractors" !e(ine!
in &aragra&$ ;$< t$ereo(. 2$e same )ection also
!e(ine! "am%sement" as a "&leas%rable !iversion
an! entertainment" "s'non'mo%s to rela4ation
avocation &astime or (%nA" an! "am%sement
&laces" to incl%!e "t$eaters cinemas concert $alls
circ%ses an! ot$er &laces o( am%sement ,$ere one
see+s a!mission to entertain onesel( b' seeing or
vie,ing t$e s$o, or &er(ormances." 2$%s it can be
in(erre! t$at t$e Co!e consi!ers t$ese
establis$ments as legitimate enter&rises an!
activities. ;/< 2$e Or!inance also contravenes t$e
&rovisions o( =.D. 088. #s correctl' arg%e! b' M2DC
t$e stat%te $a! alrea!' converte! t$e resi!ential
3rmitaDMalate area into a commercial area. 2$e
!ecree allo,e! t$e establis$ment an! o&eration o(
all +in!s o( commercial establis$ments e4ce&t
,are$o%se or o&en storage !e&ot !%m& or 'ar!
motor re&air s$o& gasoline service station lig$t
in!%str' ,it$ an' mac$iner' or (%neral
establis$ment. 2$e r%le is t$at (or an or!inance to
be vali! an! to $ave (orce an! e((ect it m%st not
onl' be ,it$in t$e &o,ers o( t$e co%ncil to enact b%t
t$e same m%st not be in con(lict ,it$ or re&%gnant
to t$e general la,.
Perez v. e la Cruz
Facts: *n 18G8 !%ring a &rivate con(erence $el! at t$e o((ice o( t$e
&etitioner Naga viceDma'or =ereB ,it$ 7 co%ncilors t$e matter o(
111
selecting t$e secretar' o( t$e m%nici&al boar! o( t$e cit' as ,ell as
t$e c$airmen o( t$e vario%s stan!ing committees came %& (or
!isc%ssion. #t t$e in!ication b' t$e 0 Nacionalista =art' co%ncilors
o( t$eir !esire to vote (or a &artic%lar &erson as secretar' o( t$e
boar! an! to $ol! t$e c$airmans$i& o( t$e committee on mar+ets
(or one o( t$em =ereB e4&resse! $er intention to vote in t$e
!eliberation o( s%c$ matters to create a tie vote an! to t$en
e4ercise $er &o,er to brea+ s%c$ !ea!loc+. 2$e (o%r a(oresai!
co%ncilors (ile! ,it$ t$e Co%rt o( First *nstance o( Camarines )%r a
&etition (or &ro$ibition ,it$ ,rit o( &reliminar' in9%nction to &revent
=ereB (rom casting $er vote in t$e selection o( t$e secretar' o( t$e
m%nici&al boar! an! in t$e c$oice o( c$airmen an! members o( t$e
!i((erent stan!ing committees e4ce&t in t$e event o( a tie vote
an! (rom voting on an' legislative &ro&osal or meas%re or in an'
&rocee!ing o( t$e sai! boar! e4ce&t ,$en t$e members t$ereo( are
e.%all' !ivi!e!. -es&on!ents allege! t$at t$e viceDma'or o( Naga
Cit' is not a member o( t$e m%nici&al boar! b%t onl' its &resi!ing
o((icer. # ,rit ,as iss%e! $ence viceDma'or =ereB assaile! t$e
iss%ance o( t$e ,rit as %n!%e inter(erence in matters &%rel'
legislative in c$aracter at t$e same time t$at s$e !enie! t$e
e4istence o( a t$reatene! invasion o( t$e rig$ts o( t$e (o%r
co%ncilors. )%bse.%entl' Liberal co%ncilors &asse! an amen!ment
to t$e -%les o( =roce!%re o( t$e Naga m%nici&al boar! granting t$e
c$airman t$ereo( t$e rig$t to vote as a member an! as &resi!ing
o((icer t$e rig$t to vote again in case o( a tie.
*ss%es: 1. 6ON t$e viceDma'or o( Naga cit' besi!es being t$e
&resi!ing o((icer o( t$e m%nici&al boar! also a member t$ereo(T
NO.
%&on a&&roval o( -e&%blic #ct //C8 1 ma+ing
elective t$e o((ices o( ma'or viceDma'or an!
co%ncilors in c$artere! cities t$e &osition o( viceD
ma'or among ot$ers ,as create!. 2$%s section 1 o(
sai! la, &rovi!es: 2$e &osition o( KiceDMa'or is
$ereb' create! in c$artere! cities ,$ic$ at &resent
$ave no &osition (or KiceDMa'or b' &rovision o( t$eir
cor&orate c$arters: =rovi!e! 2$at t$e KiceDMa'or
s$all be t$e &resi!ing o((icer o( t$e Cit' Co%ncil or
M%nici&al Boar! in all c$artere! cities.
=ereB no, conten!s t$at since %n!er t$e Naga Cit'
c$arter t$e ma'or ,as t$e &resi!ing o((icer o( t$e
m%nici&al boar! an! since %n!er -e&%blic #ct //C8
creating t$e &osition o( viceDma'or ,$o ,as ma!e
t$e &resi!ing o((icer t$e viceDma'or sim&l' re&lace!
t$e ma'or as "&resi!ing o((icer" o( t$e m%nici&al
boar! t$e viceDma'or ac.%ire! all t$e rig$ts an!
&rerogatives o( t$e &resi!ing o((icer %n!er t$e
c$arter one o( ,$ic$ is "members$i& in t$e
m%nici&al boar!."
W%iem v. )eriRa: t$e silence o( -e&. #ct //C8 on
,$et$er t$e viceDma'or t$e &resi!ing o((icer is a
member o( t$e boar! ,as not eno%g$ gro%n! (or
e4cl%!ing t$e viceDma'or (rom members$i& in t$e
boar!. B%t t$e legal setting an! &remises in W%iem
are ,i!el' !is&arate (rom t$ose in t$e case at bar.
*n t$e (irst &lace in W%iem ,e (o%n! t$at "b'
e4&ress legal man!ate t$e viceDma'or o( Caga'an
!e Oro Cit' is a member o( t$e boar!" beca%se "t$at
cit'Hs original c$arters calls (or an a&&ointive KiceD
Ma'or ,$o Hs$all be a member o( t$e M%nici&al
Boar!H." *n t$e case at bar $o,ever in contrast ,it$
sec. 11 o( -e&%blic #ct C/1 creating t$e cit' o(
Caga'an !e Oro ,$ic$ e4&licitl' ma!e t$e viceD
ma'or a member o( t$e m%nici&al boar! section 11
o( -e&%blic #ct 15C creating t$e Cit' o( Naga (aile!
to &rovi!e even (or t$e &osition o( viceDma'or. *n t$e
secon! &lace -e&%blic #ct 11/C 15 &artic%larl'
section 1 t$ereo( amen!ing t$e Caga'an !e Oro
c$arter e4&ressl' reiterate! t$at t$e viceDma'or
"s$all be a member o( t$e M%nici&al Boar!A" as s%c$
similar stat%tor' basis can be cogentl' invo+e! (or
t$e &etitioner =ereB.
Bagasao et al. vs. 2%mangan: t$e viceDma'or "as
t$e &resi!ing o((icer o( t$e M%nici&al Boar! o( t$e
Cit' o( Cabanat%an is a member t$ereo(" an! "$e
ma' e4ercise $is rig$t to vote as a member on an'
&ro&ose! or!inance resol%tion or motion." B%t ,e
so $el! beca%se "bot$ t$e %namen!e! an!
amen!e! &rovisions o( section 11 o( t$e C$arter o(
t$e Cit' o( Cabanat%an &rovi!e t$at t$e &resi!ing
o((icer o( t$e M%nici&al Boar! is a member t$ereo(.
#n! as ,e $ave re re&eate!l' state! t$ere is no
&rovision ,$atever in -e&%blic #ct 15C creating t$e
Cit' o( Naga t$at &rovi!es (or t$e &osition o( viceD
11/
ma'orA an! t$e amen!ator' &rovisions o( -e&%blic
#ct //C8 ma+ing t$e viceDma'or t$e &resi!ing
o((icer o( t$e m%nici&al boar! !oes not ma+e $im a
constit%ent member t$ereo(.
=aragra&$ ;g< o( -%le *** o( t$e -%les o( =roce!%re
a!o&te! b' t$e m%nici&al boar! o( Naga Cit' ,$ic$
recites: ;g< 2$e c$airman cannot vote e4ce&t in
case o( a tie. Ho,ever a member o( t$e Boar!
acting as c$airman ma' vote as a member an! as
c$airman to brea+ a tie.
2$e &etitioner insists $o,ever t$at t$e above
&rovision ,as amen!e! b' t$e Gt$ m%nici&al boar!
$ea!e! b' $er to rea! as (ollo,s: ;g< 2$e C$airman
as member o( t$e Boar! can vote an! as a =resi!ing
O((icer ma' vote again in case o( a tie. *n t$e same
manner a member o( t$e Boar! acting as c$airman
ma' vote as a member an! as C$airman to brea+
t$e tie. )%c$ insistence is a s$eer e4ercise in (%tilit'
beca%se ;1< t$e amen!e! r%le &res%&&oses t$at t$e
c$airman is a "member o( t$e Boar!" S an
ass%m&tion t$at is ,it$o%t legal basisA ;/< t$e sai!
amen!ator' r%le ,as &asse! on Marc$ C 18G8
almost t,o mont$s a(ter t$e (iling on 7an%ar' 1C
18G8 b' t$e &rivate res&on!ents o( t$eir &etition in
civil case GC50 t$at is &en!ente liteA an! ;1<
alt$o%g$ on t$e !ate t$e sai! amen!ment ,as
&asse! t$at restraining or!er !ate! Febr%ar' /5
18G8 o( t$e Co%rt o( #&&eals ,as in (orce t$ere ,as
no .%or%m in t$e boar! as t$e (o%r res&on!ents
co%ncilors $a! ,al+e! o%t o( t$e session $all
leaving onl' t$e t$ree Liberal =art' co%ncilors an!
t$e &etitioner. 2$e &ro&ose! amen!ment ,as
t$ere(ore a com&lete n%llit'.
=etitioner>s t$eor' t$at since t$e ma'or o( Naga
Cit' ,$o ,as a member o( t$e m%nici&al boar!
%n!er -e&. #ct 15C ,as re&lace! b' t$e viceDma'or
as &resi!ing o((icer t$ereo( t$e viceDma'or m%st
&er(orce be !eeme! a member o( t$e m%nici&al
boar!. =ressing $er bi! s$e asserts t$at -e&%blic
#ct //C8 e((ecte! a mere c$ange in t$e o((icer ,$o
,ill &resi!e t$e meetings o( t$e boar! an! since t$e
viceDma'or re&lace! t$e ma'or as "&resi!ing
o((icer" t$ereo( t$e viceDma'or ac.%ire! all t$e
rig$ts an! &rerogatives o( t$e &resi!ing o((icer one
o( ,$ic$ is members$i& in t$e boar!. 2$is
contention (in!s no s%&&ort eit$er in la, or logic.
For section 1 o( -e&. #ct //C8 sim&l' installs t$e
viceDma'or as t$e &resi!ing o((icer o( t$e boar! in
all c$artere! cities. *t !oes not install t$e viceDma'or
as a member t$ereo(. 2$is is es&eciall' tr%e in t$e
case o( Naga ,$ere t$e &osition o( viceDma'or
;,$et$er a&&ointive or elective< ,as originall' not
even &rovi!e! (or in its c$arter S t$e o((icial ne4tD
inDran+ to t$e ma'or being t$e cit' treas%rer.
/. 6ON s$e can vote t,ice: to create a !ea!loc+ an! t$en to brea+
it. NO.
2$e &etitioner no, arg%es t$at as viceDma'or s$e merel'
ste&&e! into t$e s$oes o( t$e ma'or as &resi!ing o((icer o(
t$e boar! an! since t$e ma'or ,as consi!ere! a member
t$ereo( s$e too became a member entitle! to t$e same
rig$ts &o,ers an! &rerogatives o( voting as t$e ma'or.
2$ere is no gainsa'ing t$e (act t$at &rior to t$e a&&roval o(
-e&. #ct //C8 t$e ma'or o( a m%nici&alit' ,as a member o(
t$e m%nici&al co%ncil /C besi!es being t$e &resi!ing o((icer
t$ereo( b%t $is rig$t to vote co%l! be e4ercise! onl' in
"case o( a tie." /G Certainl' t$e viceDma'or ,$o merel'
ste&&e! into t$e s$oes o( t$e ma'or co%l! $ave no greater
&o,er t$an t$at &ossesse! b' t$e ma'or ,$o co%l! not
create a tie vote an! t$en brea+ it.
1. 6ON t$e 9%!ge $as 9%ris!iction to iss%e t$e ,rit o( &ro$ibitor'
in9%nction against =ereB. :3).
2$e &etitionerHs (inal contention is t$at as a legislative
o((icial &er(orming legislative (%nctions s$e is not s%b9ect to
an' &ro$ibitor' &rocess b' t$e co%rts. )$e invo+es Kera et
al. vs. #velino et al. ;77 =$il. 18/< ,$ere ,e $el!:
=etitioners &ra' (or a ,rit o( &ro$ibition. @n!er t$e la,
&ro$ibition re(ers onl' to &rocee!ings o( an' trib%nal
cor&oration boar! or &erson e4ercising (%nctions 9%!icial or
ministerial. #s res&on!ents !o not e4ercise s%c$ +in! o(
(%nctions t$eirs being legislative it is clear t$at t$e !is&%te
(alls be'on! t$e sco&e o( s%c$ s&ecial reme!'.
111
*nvocation o( t$is r%ling is com&letel' ina&&osite. 2$e
!octrine t$erein lai! !o,n is base! on t$e &rinci&le o(
se&aration o( &o,ers an! c$ee+s an! balances an! is not
a&&licable to local governments. Moreover e4ec%tives at
t$e local or m%nici&al level are veste! ,it$ bot$ legislative
an! sometimes 9%!icial (%nctions in a!!ition to t$eir &%rel'
e4ec%tive !%ties. B' e4&licit stat%tor' comman! co%rts are
given a%t$orit' to !etermine t$e vali!it' o( m%nici&al
&rocee!ings. *t is not !is&%te! t$at t$e &resent &rocee!ing
(or &ro$ibition $as (or its ob9ective to &revent t$e &etitioner
(rom "&artici&ating in t$e election o( )ecretar' o( t$e Boar!
c$airmans$i& o( !i((erent committees an! in voting in ot$er
legislative matters &ro&osals an! &rocee!ings ot$er t$an
to brea+ a tie." *t is o%r vie, t$at t$e &etitioner in insisting
to e4ercise t$e rig$t to vote t,ice in t$e m%nici&al boar!
acte! ,it$o%t 9%ris!iction an! &o,er to !o so an! ma' be
vali!l' &revente! an! restraine! b' a ,rit o( &ro$ibition.
*n re&l' to t$e &etitionerHs assertion t$at t$e acts so%g$t to
be restraine! are mere "&robable in!ivi!%al act%ations"
be'on! t$e reac$ o( a &ro$ibitor' ,rit s%((ice it to state t$at
&ro$ibition is essentiall' a "&reventive reme!'" an! is "not
inten!e! to &rovi!e (or a reme!' (or acts alrea!'
accom&lis$e!." 6it$al &etitionerHs t$reat o( voting t,ice in
t$e m%nici&al boar! ,as not an em&t' or meaningless
gest%re (or t$e recor! s$o,s t$at on Marc$ C 18G8 soon
a(ter t$e ,rit com&laine! o( ,as li(te! b' t$e Co%rt o(
#&&eals t$ro%g$ t$e latterHs restraining or!er o( Febr%ar'
/5 18G8 t$e &etitioner &rocee!e! to act b' voting t,ice (or
t$e a&&roval o( an allege! amen!ment to t$e r%les o(
&roce!%re o( t$e m%nici&al boar!.
9omeo"ners Association o! the Philippines v. Municipal
Boar o! Manila
Facts: 2$e Cit' o( Manila &asse! M%nici&al Or!inance No. 0801
,$ic$ reg%lates rentals o( lots an! b%il!ings (or resi!ential
&%r&oses. 2$e Homeo,nersH #ssociation o( t$e =$ili&&ines *nc. an!
its =resi!ent so%g$t to n%lli(' t$e or!inance. CF*: or!inance is %ltra
vires %nconstit%tional illegal an! voi! ab initio.
LC: str%c+ !o,n t$e .%estione! or!inance %&on t$e gro%n! t$at
t$e &o,er to "!eclare a state o( emergenc' ... e4cl%sivel' &ertains
to Congress"A t$at "t$ere is no longer an' state o( emergenc'"
,$ic$ ma' 9%sti(' t$e reg%lation o( $o%se rentalsA t$at sai!
or!inance constit%tes an %nreasonable an! %n9%sti(ie! limitation on
t$e %se o( &rivate &ro&erties an! arbitraril' encroac$es on t$e
constit%tional rig$ts o( &ro&ert' o,ners"A t$at t$e &o,er o( t$e Cit'
o( Manila to "reg%late t$e b%siness o( ... letting or s%bletting o(
lan!s an! b%il!ings" !oes not incl%!e t$e a%t$orit' to &ro$ibit ,$at
is (orbi!!en in sai! or!inanceA an! t$at t$e same cannot be
!eeme! sanctione! b' t$e general ,el(are cla%se in t$e Cit'
C$arter.
*ss%e: 6ON t$e Or!inance is vali!. NO.
2$e a%t$orit' o( m%nici&al cor&orations to reg%late
is essentiall' &olice &o,er. *nasm%c$ as t$e same
generall' entails a c%rtailment o( t$e libert' t$e
rig$ts an!?or t$e &ro&ert' o( &ersons ,$ic$ are
&rotecte! an! even g%arantee! b' t$e Constit%tion
t$e e4ercise o( &olice &o,er is necessaril' s%b9ect to
a .%ali(ication limitation or restriction !eman!e! b'
t$e regar! t$e res&ect an! t$e obe!ience !%e to
t$e &rescri&tions o( t$e (%n!amental la,
&artic%larl' t$ose (orming &art o( t$e Constit%tion o(
Libert' ot$er,ise +no,n as t$e Bill o( -ig$ts S t$e
&olice &o,er meas%re m%st be "reasonable". *n
ot$er ,or!s in!ivi!%al rig$ts ma' be a!versel'
a((ecte! b' t$e e4ercise o( &olice &o,er to t$e
e4tent onl' S an! onl' to t$e e4tent S t$at ma'
(airl' be re.%ire! b' t$e legitimate !eman!s o(
&%blic interest or &%blic ,el(are. *( s%c$ !eman!s
are bro%g$t abo%t b' a state o( emergenc' t$e
inter(erence %&on in!ivi!%al rig$ts res%lting (rom
t$e reg%lations a!o&te! to meet t$e sit%ation m%st
be b' an! large coDe4tensive coDe.%al or coD
termino%s ,it$ t$e e4istence t$ereo(. #n! since an
emergenc' is b' nat%re tem&orar' in c$aracter so
m%st t$e reg%lations &rom%lgate! t$ere(or be. *n
t$e lang%age o( 7%stice Holmes"circ%mstances ma'
so c$ange in time or !i((er in s&ace as to clot$e ,it$
s%c$ an interest ,$at at ot$er times or in ot$er
&laces ,o%l! be a matter o( &%rel' &rivate concern."
#s a conse.%ence a la, or or!inance a((ecting t$e
rig$ts o( in!ivi!%als as a means to ti!e over a
critical con!ition to be vali! an! legal m%st be (or a
110
"!e(inite" &erio! o( time t$e lengt$ o( ,$ic$ m%st
be "reasonable" in relation to t$e nat%re an!
!%ration o( t$e crisis it see+s to overcome or
s%rmo%nt.
2$e &ractical reason (or t$e re.%irement t$at a
stat%te &asse! to meet a given emergenc' s$o%l!
limit t$e &erio! o( its e((ectivit' is t$at ot$er,ise a
ne, an! !i((erent la, ,o%l! be necessar' to re&eal
it an! sai! &erio! ,o%l! accor!ingl' be "%nlimite!
in!e(inite negative an! %ncertain" so t$at "t$at
,$ic$ ,as inten!e! to meet a tem&orar'
emergenc' ma' become a &ermanent la," beca%se
"Congress mig$t not enact t$e re&eal an! even i( it
,o%l! t$e re&eal mig$t not meet ,it$ t$e a&&roval
o( t$e =resi!ent an! t$e Congress mig$t not be
able to overri!e t$e veto". *n line ,it$ t$e basic
&$iloso&$' %n!erl'ing t$e a%t$orit' to a((ect
in!ivi!%al rig$ts t$is Co%rt (elt t$at Common,ealt$
#ct No. G71 ot$er,ise +no,n as t$e 3mergenc'
=o,ers #ct ,as meant to be an! "became
ino&erative ,$en Congress met in reg%lar session
on Ma' /C 180G" an! t$at 34ec%tive Or!ers Nos.
G/ 18/ //C an! //G S &rom%lgate! s%bse.%entl'
t$ereto S ",ere iss%e! ,it$o%t a%t$orit' o( la,"
beca%se ot$er,ise sai! emergenc' reg%lations
,o%l! &%r&ort to be in (orce (or an in!e(inite an!
%nlimite! &erio! o( time an! $ence ,o%l! be
%nconstit%tional.
2$e same consi!erations im&elle! t$e Co%rt to
invali!ate 34ec%tive Or!er Nos. C0C an! C0G iss%e!
on November 15 18C/. *n!ee! ot$er,ise "t$e
res%lt ,o%l! be obvio%s %nconstit%tionalit'" b'
ma+ing &ermanent a la, inten!e! to a((or! a relie(
(or a tem&orar' emergenc' t$e lengt$ o( ,$ic$
s$o%l! be "(i4e! in t$e la, itsel( an! not !e&en!ent
%&on t$e arbitrar' or elastic ,ill o( eit$er Congress
or t$e =resi!ent".
2$e &o,ers o( m%nici&al cor&orations !elegate!
t$ereto b' t$e National Government cannot esca&e
t$e in$erent limitations to ,$ic$ t$e latter S as t$e
so%rce o( sai! &o,ers S is s%b9ect. 2$en again
since o%r la, on m%nici&al cor&orations is in
&rinci&le &atterne! a(ter t$at o( t$e @nite! )tates
t$e r%le t$erein to t$e e((ect t$at "in a &ro&er case
emergenc' legislation limite! in time ma' be
enacte! %n!er t$e &olice &o,er" o( a m%nici&al
cor&oration s$o%l! be consi!ere! a &art o( o%r legal
s'stem.
#&&ellant assails t$e vali!it' o( t$e &rocee!ings in
t$e lo,er co%rt %&on t$e ro%n! t$at alt$o%g$
&etitioners $erein $a! assaile! M%nici&al Or!inance
No. 0801 not merel' as %ltra vires b%t also as
%nconstit%tional t$e )olicitor General $a! been
neit$er $ear! nor noti(ie! in connection t$ere,it$
in violation o( )ection 0 o( -%le G0 o( t$e -%les o(
Co%rt.
*t s$o%l! be note! $o,ever t$at a&&ellant !i! not
raise t$is .%estion or invo+e sai! )ection 0 eit$er in
$is ans,er or in a motion to !ismiss in t$e lo,er
co%rt. @&on t$e ot$er $an! t$e Cit' Fiscal o( Manila
,as noti(ie! t$erein. *n (act $e (ile! a
memoran!%m a&art (rom t$e memoran!%m
s%bmitte! b' co%nsel (or a&&ellant $erein. Neit$er
!i! $is motion (or reconsi!eration o( t$e a&&eale!
!ecision to%c$ %&on sai! .%estion ,$ic$ ,as
raise! (or t$e (irst time in a "s%&&lement" to sai!
motion (or reconsi!eration.
#t an' rate t$e !etermination o( t$e .%estion
,$et$er or not t$e )olicitor General s$o%l! be
re.%ire! to a&&ear "in an' action involving t$e
vali!it' o( an' treat' la, or!inance or e4ec%tive
or!er r%les or reg%lation" is a matter le(t to t$e
"!iscretion" o( t$e Co%rt &%rs%ant to )ection /1 o(
-%le 1 o( t$e -%les o( Co%rt. *nasm%c$ as sai!
re.%irement is not man!ator' b%t !iscretionar'
nonDcom&liance t$ere,it$ an! ,it$ )ection 0 o( -%le
G0 S t$e inter&retation o( ,$ic$ s$o%l! be
$armoniBe! ,it$ sai! )ection /1 o( -%le 1 S
a((ecte! neit$er t$e 9%ris!iction o( t$e trial co%rt nor
t$e vali!it' o( t$e &rocee!ings t$erein in
connection ,it$ t$e &resent case. 2$%s in )an
B%enavent%ra vs. M%nici&alit' o( )an 7ose ,e $el!:
t$at t$e re.%irement regar!ing noti(ication to t$e
=rovincial Fiscal o( t$e &en!enc' o( an action
11C
involving t$e vali!it' o( a m%nici&al or!inance as
&rovi!e! in )ec. C -%le GG o( t$e -%les o( Co%rt
;no, )ee. 0 -%le G0 o( t$e -evise! -%les o( Co%rt<
is not 9%ris!ictionalA an! (ail%re on t$e &art o(
&etitioner to noti(' t$e =rovincial Fiscal ,ill not be a
s%((icient gro%n! to t$ro, t$e case o%t o( co%rt. 6e
believe t$e &%r&ose o( t$e aboveD.%ote! r%le is
sim&l' to give t$e =rovincial Fiscal ,$o is t$e legal
o((icer o( t$e local governments a c$ance to
&artici&ate in t$e !eliberation to !etermine t$e
vali!it' o( a .%estione! m%nici&al or!inance be(ore
t$e com&etent co%rt. *( it a&&ears $o,ever t$at t$e
or!inance in .%estion is &atentl' illegal as in t$e
&resent case an! t$e matter $a! alrea!' been
&asse! %&on b' a com&etent co%rt t$e
re.%irements o( )ec. C o( -%le GG o( t$e -%les o(
Co%rt ;no, )ee. 0 o( -%le G0 o( t$e -evise! -%les o(
Co%rt< ma' be !is&ense! ,it$.

11G
Morata v. Go
Facts: Kictor an! Flora Go (ile! a com&laint ,it$ t$e CF* against
7%li%s an! Ma. L%isa Morata (or recover' o( a s%m o( mone' &l%s
!amages. 2$e &arties are all resi!ents o( Ceb% Cit'. 2$e Moratas
(ile! a motion to !ismiss citing as gro%n!s t$e (ail%re o( t$e
com&laint to allege &rior availment b' t$e Gos o( t$e baranga'
conciliation &rocess re.%ire! b' =.D. 1C58 as ,ell as t$e absence
o( a certi(ication b' t$e L%&on or =ang+at )ecretar' t$at no
conciliation or settlement $a! been reac$e! b' t$e &arties. 2$e
motion ,as o&&ose!. M2D !enie!. M- !enie!.

*ss%e: 6ON t$e Matar%ngang =ambaranga' la, a&&l' to cases
$ear! b' t$e -egional 2rial Co%rts. :3).
)3C2*ON G. No com&laint &etition action (or &rocee!ing
involving an' matter ,it$in t$e a%t$orit' o( t$e L%&on as
&rovi!e! in )ection / $ereo( s$all be (ile! or instit%te! in
co%rt or an' ot$er government o((ice (or a!9%!ication %nless
t$ere $as been a con(rontation o( t$e &arties be(ore t$e
L%&on C$airman or t$e =ang+at an! no conciliation or
settlement $as been reac$e! as certi(ie! b' t$e L%&on
)ecretar' or t$e =ang+at )ecretar' atteste! b' t$e L%&on or
=ang+at C$airman or %nless t$e settlement $as been
re&%!iate!. Ho,ever t$e &arties ma' go !irectl' to co%rt in
t$e (ollo,ing cases: U1V 6$ere t$e acc%se! is %n!er
!etentionA U/V 6$ere a &erson $as ot$er,ise been !e&rive!
o( &ersonal libert' calling (or $abeas cor&%s &rocee!ingsA U1V
#ctions co%&le! ,it$ &rovisional reme!ies s%c$ as
&reliminar' in9%nction attac$ment !eliver' o( &ersonal
&ro&ert' an! s%&&ort &en!ente liteA an! U0V 6$ere t$e
action ma' ot$er,ise be barre! b' t$e )tat%te o(
Limitations
)ection / o( t$e la, !e(ines t$e sco&e o( a%t$orit' o( t$e
L%&on t$%s: )%b9ect matters (or amicable settlement.S2$e
L%&on o( eac$ baranga' s$all $ave a%t$orit' to bring
toget$er t$e &arties act%all' resi!ing in t$e same cit' or
m%nici&alit' (or amicable settlement o( all !is&%tes e4ce&t:
U1V 6$ere one &art' is t$e government or an' s%b!ivision
or instr%mentalit' t$ereo(A U/V 6$ere one &art' is a &%blic
o((icer or em&lo'ee an! t$e !is&%te relates to t$e
&er(ormance o( $is o((icial (%nctionsA U1V O((enses &%nis$able
b' im&risonment e4cee!ing 15 !a's or a (ine e4cee!ing
=/55.55A U0V O((enses ,$ere t$ere is no &rivate o((en!e!
&art'A UCV )%c$ ot$er classes o( !is&%tes ,$ic$ t$e =rime
Minister ma' in t$e interest o( 9%stice !etermine %&on
recommen!ation o( t$e Minister o( 7%stice an! t$e Minister
o( Local Government.
2$%s e4ce&t in t$e instances en%merate! in sections / an!
G o( t$e la, t$e L%&on $as t$e a%t$orit' to settle amicabl'
all t'&es o( !is&%tes involving &arties ,$o act%all' resi!e in
t$e same cit' or m%nici&alit'. 2$e la, as ,ritten ma+es no
!istinction ,$atsoever ,it$ res&ect to t$e classes o( civil
!is&%tes t$at s$o%l! be com&romise! at t$e baranga' level
in contra!istinction to t$e limitation im&ose! %&on t$e
L%&on b' &aragra&$ ;1< section / t$ereo( as regar!s its
a%t$orit' over criminal cases. *n (act in !e(ining t$e L%&onHs
a%t$orit' )ection / o( sai! la, em&lo'e! t$e %niversal an!
com&re$ensive term "all" to ,$ic$ %sage 6e s$o%l! neit$er
a!! nor s%btract in consonance ,it$ t$e r%!imentar'
&rece&t in stat%tor' constr%ction t$at ",$ere t$e la, !oes
not !isting%is$ 6e s$o%l! not !isting%is$.
B' com&elling t$e !is&%tants to settle t$eir !i((erences
t$ro%g$ t$e intervention o( t$e baranga' lea!er an! ot$er
res&ecte! members o( t$e baranga' t$e animosit'
generate! b' &rotracte! co%rt litigations bet,een members
o( t$e same &olitical %nit a !isr%&tive (actor to,ar! %nit'
an! coo&eration is avoi!e!. *t m%st be borne in min! t$at
t$e conciliation &rocess at t$e baranga' level is li+e,ise
!esigne! to !isco%rage in!iscriminate (iling o( cases in co%rt
117
in or!er to !econgest its clogge! !oc+ets an! in t$e
&rocess en$ance t$e .%alit' o( 9%stice !is&ense! b' it.
2$%s to sa' t$at t$e a%t$orit' o( t$e L%&on is limite! to
cases e4cl%sivel' cogniBable b' t$e in(erior co%rts is to lose
sig$t o( t$is ob9ective. 6orse it ,o%l! ma+e t$e la, a sel(D
!e(eating one. For ,$at ,o%l! sto& a &art' sa' in an action
(or a s%m o( mone' or !amages as in t$e instant case (rom
bloating %& $is claim in or!er to &lace $is case be'on! t$e
9%ris!iction o( t$e in(erior co%rt an! t$ereb' avoi! t$e
man!ator' re.%irement o( =.D. 1C58T #n! ,$' in!ee!
s$o%l! t$e la, see+ to ease t$e congestion o( !oc+ets onl'
in in(erior co%rts an! not in t$e regional trial co%rts ,$ere
t$e logD9am o( cases is m%c$ more serio%sT *n!ee! t$e
la,ma+ers co%l! not $ave inten!e! s%c$ $al(Dmeas%re an!
sel(D!e(eating legislation.
2$ere can be no .%estion t$at ,$en t$e la, con(erre! %&on
t$e L%&on "t$e a%t$orit' to bring toget$er t$e &arties
act%all' resi!ing in t$e same cit' or m%nici&alit' (or
amicable settlement o( all !is&%tes ... " its obvio%s
inten!ment ,as to grant to t$e L%&on as broa! an!
com&re$ensive an a%t$orit' as &ossible as ,o%l! bring
abo%t t$e o&tim%m realiBation o( t$e a(oresai! ob9ectives.
2$ese ob9ectives ,o%l! onl' be $al(Dmet an! easil' t$,arte!
i( t$e L%&onHs a%t$orit' is e4ercise! onl' in cases (alling
,it$in t$e e4cl%sive 9%ris!iction o( in(erior co%rts.
Moreover i( it is t$e intention o( t$e la, to restrict its
coverage onl' to cases cogniBable b' t$e in(erior co%rts
t$en it ,o%l! not $ave &rovi!e! in )ection 1 t$ereo( t$e
(ollo,ing r%le on Ken%e to ,it: Ho,ever all !is&%tes ,$ic$
involve real &ro&ert' or an' interest t$erein s$all be bro%g$t
in t$e Baranga' ,$ere t$e real &ro&ert' or an! &art t$ereo(
is sit%ate!.
2$e a%t$orit' o( t$e L%&on is clearl' establis$e! in )ection /
o( t$e la,A ,$ereas )ections 11 1/ an! 10 relie! %&on b'
res&on!ent 9%!ge !eal ,it$ t$e n%lli(ication or e4ec%tion o(
t$e settlement or arbitration a,ar!s obtaine! at t$e
baranga' level. 2$ese sections con(erre! %&on t$e cit' an!
m%nici&al co%rts t$e 9%ris!iction to &ass %&on an! resolve
&etitions or actions (or n%lli(ication or en(orcement o(
settlement?arbitration a,ar!s iss%e! b' t$e L%&on
regar!less o( t$e amo%nt involve! or t$e nat%re o( t$e
original !is&%te. B%t t$ere is not$ing in t$e conte4t o( sai!
sections to 9%sti(' t$e t$esis t$at t$e man!ate! conciliation
&rocess in ot$er t'&es o( cases a&&lies e4cl%sivel' to sai!
in(erior co%rts.
#n' !o%bt on t$e iss%e be(ore @s s$o%l! be !is&elle! b'
Circ%lar No. // iss%e! b' C$ie( 7%stice 3nri.%e M. Fernan!o:
E3((ective %&on 'o%r recei&t o( t$e certi(ication b' t$e
Minister o( Local Government an! Comm%nit' Develo&ment
t$at all t$e baranga's ,it$in 'o%r res&ective 9%ris!ictions
$ave organiBe! t$eir L%&ons &rovi!e! (or in =resi!ential
Decree No. 1C58 ot$er,ise +no,n as t$e 5atarungang
#ambarangay 2aw in im&lementation o( t$e baranga'
s'stem o( settlement o( !is&%tes 'o% are $ereb' !irecte! to
!esist (rom receiving com&laints &etitions actions or
&rocee!ings in cases (alling ,it$in t$e a%t$orit' o( sai!
L%&ons.
*t is signi(icant t$at t$e aboveD.%ote! circ%lar embo!'ing
t$e !irective "to !esist (rom receiving com&laints &etitions
actions an! &rocee!ings in cases (alling ,it$in t$e a%t$orit'
o( sai! L%&ons" $as been a!!resse! not onl' to 9%!ges o(
cit' an! m%nici&al co%rts b%t also to all t$e 9%!ges o( t$e
co%rts o( (irst instance circ%it criminal co%rts 9%venile an!
!omestic co%rts an! co%rts o( agrarian relations no, +no,n
as regional trial co%rts %n!er B.=. No. 1/8. 2$e sai! circ%lar
,as note! b' &resi!ent Fer!inan! 3. Marcos in a Letter o(
*m&lementation !ate! November 1/ 1878 t$e (irst
&aragra&$ o( ,$ic$ rea!s as (ollo,s: ",it$ t$e vie, to
easing %& t$e logD9am o( cases an! solving t$e bac+logs in
t$e case o( !oc+ets o( all government o((ices involve! in t$e
investigation trial an! a!9%!ication o( cases it is $ereb'
or!ere! t$at imme!iate im&lementation be ma!e b' all
government o((icials an! o((ices concerne! o( t$e s'stem o(
amicabl' settling !is&%tes at t$e baranga' level as &rovi!e!
(or in t$e Matar%ngang =ambaranga' La, U=resi!ential
Decree No. 1C58V."
2$e conciliation &rocess at t$e baranga' level &rescribe! b'
=.D. 1C58 as a &reDcon!ition (or (iling a com&laint in co%rt is
com&%lsor' not onl' (or cases (alling %n!er t$e e4cl%sive
com&etence o( t$e metro&olitan an! m%nici&al trial co%rts
b%t (or actions cogniBable b' t$e regional trial co%rts as
,ell.
A# v. Contreras
118
Facts: @' s%blease! (rom #ta'!e t$e ot$er $al( o( t$e secon! (loor
o( a b%il!ing locate! at corner -e&oso an! Oliman )treets Ma+ati.
)$e o&erate! an! maintaine! t$erein a bea%t' &arlor. 2$e s%blease
contract e4&ire!. Ho,ever t$e @' ,as not able to remove all $er
movable &ro&erties. #n arg%ment arose bet,een t$e @' an!
#ta'!e ,$en t$e (ormer so%g$t to ,it$!ra, (rom t$e s%blease!
&remises $er remaining movable &ro&erties s%c$ as cabinets
s$elves (rames a mirror a s$am&oo bo,l an! an aircon!itioning
casing. 2$e arg%ment !egenerate! into a sc%((le bet,een t$e
&etitioner on t$e one $an! an! #ta'!e an! several o( #ta'!eHs
em&lo'ees incl%!ing &rivate res&on!ent 7avier on t$e ot$er. 2$e
&rivate res&on!ent $a! t$emselves me!icall' e4amine! (or t$e
allege! in9%ries in(licte! on t$em b' @'. 2$e' t$en (ile! a com&laint
,it$ t$e baranga' ca&tain o( KalenB%ela Ma+ati. 2$e con(rontation
o( t$e &arties ,as sc$e!%le! b' t$e baranga' ca&tain b%t onl' @'
a&&eare!. 2$e con(rontation ,as reset. 2$e O((ice o( t$e =rovincial
=rosec%tor o( -iBal (ile! t,o in(ormations (or slig$t &$'sical in9%ries
against @'. 7%!ge Contreras or!ere! t$e &etitioner to s%bmit $er
co%nterDa((i!avit an! t$ose o( $er ,itnesses. @' s%bmitte! t$e
re.%ire! co%nterDa((i!avits ,$ere s$e s&eci(icall' allege! t$e
&remat%rit' o( t$e (iling o( t$e criminal cases (or (ail%re to %n!ergo
conciliation &rocee!ings as s$e an! t$e &rivate res&on!ents are
resi!ents o( Manila. )$e also attac$e! to it a certi(ication b' t$e
baranga' ca&tain o( KalenB%ela Ma+ati t$at t$ere ,as an ongoing
conciliation bet,een t$e &arties. @' t$en (ile! an M2D (or nonD
com&liance ,it$ t$e re.%irement o( =.D. No. 1C58 on &rior re(erral
to t$e L%&ong 2aga&ama'a&a an! &%rs%ant to )ection 18 o( t$e
1881 -evise! -%le on )%mmar' =roce!%re. M2D !enie! M-
!enie!.

*ss%e:6ON it is man!ator' (or t$e &arties $erein to s%bmit to t$e
me!iation o( t$e +atar%ngang &ambaranga' be(ore a case in co%rt.
:3).
2$e la, on t$e +atar%ngang &ambaranga' ,as originall'
governe! b' =.D. No. 1C58 no, re&eale! b' LGC. 2$ree
ne, (eat%res: ;1< *t increase! t$e a%t$orit' o( t$e l%&on in
criminal o((enses (rom t$ose &%nis$able b' im&risonment
not e4cee!ing t$irt' !a's or a (ine not e4cee!ing =/55.55 in
=.D. No. 1C58 to t$ose o((enses &%nis$able b' im&risonment
not e4cee!ing one 'ear or a (ine not e4cee!ing =C555.55.
;/< #s to ven%e it &rovi!es t$at !is&%tes arising at t$e
,or+&lace ,$ere t$e conten!ing &arties are em&lo'e! or at
t$e instit%tion ,$ere s%c$ &arties are enrolle! (or st%!'
s$all be bro%g$t in t$e baranga' ,$ere s%c$ ,or+&lace or
instit%tion is locate!. ;1< *t &rovi!es (or t$e s%s&ension o(
t$e &rescri&tive &erio!s o( o((enses !%ring t$e &en!enc' o(
t$e me!iation conciliation or arbitration &rocess.
=aragra&$ ;c< o( )ection 015 o( t$e la, $o,ever s%((ers
(rom some ambig%it' ,$en it &rovi!es t$at t$e &rescri&tive
&erio!s "s$all res%me %&on recei&t b' t$e com&lainant o(
t$e com&laint or t$e certi(icate o( re&%!iation or o( t$e
certi(ication to (ile action iss%e! b' t$e l%&on or &ang+at
secretar'." 6$at is re(erre! to as recei&t b' t$e com&lainant
o( t$e com&laint is %nclearA obvio%sl' it co%l! $ave been a
!ra(ting oversig$t. #ccor!ingl' in t$e above .%ote! )ection
11 o( t$e -%les an! -eg%lations iss%e! b' t$e )ecretar' o(
7%stice t$e &$rase "t$e com&laint or" is not (o%n! s%c$ t$at
t$e res%m&tion o( t$e r%nning o( t$e &rescri&tive &erio!
s$all &ro&erl' be (rom recei&t b' t$e com&lainant o( t$e
certi(icate o( re&%!iation or t$e certi(ication to (ile action
iss%e! b' t$e l%&on or t$e &ang+at secretar'. )%c$
s%s&ension $o,ever s$all not e4cee! si4t' !a's.
2$e (irst (eat%re $as necessaril' broa!ene! t$e 9%ris!iction
o( t$e l%&on an! i( t$e me!iation an! conciliation &rocess at
t$at level ,o%l! be e((ectivel' &%rs%e! (e, cases ,o%l!
reac$ t$e reg%lar co%rts 9%stice ,o%l! be ac$ieve! at less
e4&ense to t$e litigants cor!ial relations$i&s among
&rotagonists in a small comm%nit' ,o%l! be restore! an!
&eace an! or!er t$erein en$ance!.
2$e secon! (eat%re ,$ic$ is covere! b' &aragra&$ ;!<
)ection 058 o( t$e LGC also broa!ens t$e a%t$orit' o( t$e
l%&on in t$e sense t$at a&&ro&riate civil an! criminal cases
arising (rom inci!ents occ%rring in ,or+&laces or instit%tions
o( learning s$all be bro%g$t in t$e baranga' ,$ere s%c$
,or+&lace or instit%tion is locate!. 2$at baranga' ma' not
be t$e a&&ro&riate ven%e in eit$er &aragra&$ ;a< or
&aragra&$ ;b< o( t$e sai! section. 2$is r%le &rovi!es
convenience to t$e &arties. =roce!%ral r%les incl%!ing t$ose
relating to ven%e are !esigne! to ins%re a (air an!
convenient $earing to t$e &arties ,it$ com&lete 9%stice
bet,een t$em as a res%lt. 3lse,ise state! convenience is
t$e raison !Hetre o( t$e r%le on ven%e.
118
2$e t$ir! (eat%re is aime! at ma4imiBing t$e e((ectiveness
o( t$e me!iation conciliation or arbitration &rocess. *t
!isco%rages an' intentional !ela' o( t$e re(erral to a !ate
close to t$e e4&iration o( t$e &rescri&tive &erio! an! t$en
invo+ing t$e &ro4imit' o( s%c$ e4&iration as t$e reason (or
imme!iate reco%rse to t$e co%rts. *t also a((or!s t$e &arties
s%((icient time to cool o(( an! (ace eac$ ot$er ,it$ less
emotionalism an! more ob9ectivit' ,$ic$ are essential
ingre!ients in t$e resol%tion o( t$eir !is&%te. 2$e si4t'D!a'
s%s&ension o( t$e &rescri&tive &erio! co%l! s&ell t$e
!i((erence bet,een &eace an! a (%llDblo,n ,earisome an!
e4&ensive litigation bet,een t$e &arties.
6$ile =.D. No. 1C58 $as been re&eale! b' t$e LGC o( 1881
t$e 9%ris&r%!ence b%ilt t$ereon regar!ing &rior re(erral to
t$e l%&on as a &reDcon!ition to t$e (iling o( an action in co%rt
remains a&&licable beca%se its &rovisions on &rior re(erral
,ere s%bstantiall' re&ro!%ce! in t$e Co!e.
=eregrina vs. =anis: 2$%s Morata vs. Go 1/C )C-# 000
;1881< an! K!a. !e Borromeo vs. =ogo' 1/G )C-# /17
;1881< $ave $el! t$at =.D. No. 1C58 ma+es t$e conciliation
&rocess at t$e Baranga' level a con!ition &rece!ent (or t$e
(iling o( a com&laint in Co%rt. NonDcom&liance ,it$ t$at
con!ition &rece!ent co%l! a((ect t$e s%((icienc' o( t$e
&lainti((Hs ca%se o( action an! ma+e $is com&laint v%lnerable
to !ismissal on t$e gro%n! o( lac+ o( ca%se o( action or
&remat%rit'. 2$e con!ition is analogo%s to e4$a%stion o(
a!ministrative reme!ies or t$e lac+ o( earnest e((orts to
com&romise s%its bet,een (amil' members lac+ing ,$ic$
t$e case can be !ismisse!. 2$e &arties $erein (all s.%arel'
,it$in t$e ambit o( =.D. No. 1C58. 2$e' are act%al resi!ents
in t$e same baranga' an! t$eir !is&%tes !oes not (all %n!er
an' o( t$e e4ce&te! cases."
)%c$ nonDcom&liance is not $o,ever 9%ris!ictional. 2$is
Co%rt sai! so in Garces vs. Co%rt o( #&&eals: &rior reco%rse
to t$e conciliation &roce!%re re.%ire! %n!er =.D. 1C58 is not
a 9%ris!ictional re.%irement nonDcom&liance ,it$ ,$ic$
,o%l! !e&rive a co%rt o( its 9%ris!iction eit$er over t$e
s%b9ect matter or over t$e &erson o( t$e !e(en!ant. 6$ere
$o,ever t$e (act o( nonDcom&liance ,it$ an! nonD
observance o( s%c$ &roce!%re $as been seasonabl' raise!
as an iss%e be(ore t$e co%rt (irst ta+ing cogniBance o( t$e
com&laint !ismissal o( t$e action is &ro&er. 2$e &recise
tec$nical e((ect o( (ail%re to com&l' ,it$ t$e re.%irement o(
=.D. 1C58 ,$ere a&&licable is m%c$ t$e same e((ect
&ro!%ce! b' nonDe4$a%stion o( a!ministrative reme!iesA t$e
com&laint becomes a((licte! ,it$ t$e vice o( &reDmat%rit'A
t$e controvers' t$ere allege! is not ri&e (or 9%!icial
!etermination. 2$e com&laint becomes v%lnerable to a
motion to !ismiss.
2$ere ,ere o( co%rse cases ,$ere t$is Co%rt r%le! t$at t$e
(ail%re o( t$e !e(en!ant to seasonabl' invo+e nonDre(erral to
t$e a&&ro&riate l%&on o&erate! as a ,aiver t$ereo(.
F%rt$ermore ,$en s%c$ !e(ect ,as initiall' &resent ,$en
t$e case ,as (irst (ile! in t$e trial co%rt t$e s%bse.%ent
iss%ance o( t$e certi(ication to (ile action b' t$e baranga'
,$ic$ constit%te! s%bstantial com&liance ,it$ t$e sai!
re.%irement c%re! t$e !e(ect.
-evise! -%le on )%mmar' =roce!%re: )ec. 18 Cases
re.%iring re(erral to t$e L%&on (or conciliation %n!er t$e
&rovisions o( =resi!ential Decree No. 1C58 ,$ere t$ere is no
s$o,ing o( com&liance ,it$ s%c$ re.%irement s$all be
!ismisse! ,it$o%t &re9%!ice an! ma' be revive! onl' a(ter
s%c$ re.%irement s$all $ave been com&lie! ,it$. 2$is
&rovision s$all not a&&l' to criminal cases ,$ere t$e
acc%se! ,as arreste! ,it$o%t a ,arrant.
*n t$e &rocee!ing be(ore t$e co%rt a .%o t$e &etitioner an!
t$e res&on!ent $a! in min! onl' =.D. No. 1C58. 2$e
&etitioner (%rt$er invo+e! t$e a(ore.%ote! )ection 18. None
+ne, o( t$e re&eal o( t$e !ecree b' t$e LGC o( 1881. 3ven
in $er instant &etition t$e &etitioner invo+es t$e !ecree an!
)ection 18 o( t$e -evise! -%le on )%mmar' =roce!%re.
Ho,ever t$e &rivate res&on!ents realiBing t$e ,ea+ness o(
t$eir &osition %n!er =.D. No. 1C58 since t$e' !i! re(er t$eir
grievances to ,$at mig$t be a ,rong (or%m %n!er t$e
!ecree c$ange! tac+. *n t$eir Comment t$e' assert t$at on
/5 #&ril 1881 #ta'!e "(ile! a com&laint against &etitioner
be(ore t$e baranga' co%ncil o( Baranga' KalenB%ela
Ma+ati in com&liance ,it$ t$e re.%irement o( t$e
Matar%ngang =ambaranga' La, %n!er t$e LGC." :et in a
!eliberate e((ort to be c%nning or s$re,! ,$ic$ is
con!emnable (or it !isregar!s t$e virt%e o( can!or t$e'
assert t$at t$e sai! la, is not a&&licable to t$eir cases
be(ore t$e co%rt a .%o beca%se ;a< t$e &etitioner an!
res&on!ent #ta'!e are not resi!ents o( baranga's in t$e
1/5
same cit' or m%nici&alit'A ;b< t$e la, !oes not a&&l' ,$en
t$e action as in t$e sai! cases ma' ot$er,ise be barre! b'
t$e stat%te o( limitationsA an! ;c< even ass%ming t$at t$e
la, a&&lies inso(ar as #ta'!e is concerne! s$e $as
s%bstantiall' com&lie! ,it$ it.
2$e O((ice o( t$e =rovincial =rosec%tor o( -iBal s$o%l! $ave
e4erte! eno%g$ !iligence to in.%ire (rom t$e &rivate
res&on!ents i( &rior re(erral to t$e l%&on ,as necessar'
be(ore (iling t$e in(ormations.
-es&on!ent 9%!ge !i! not !o an' better. His total
%na,areness o( t$e LGC o( 1881 more s&eci(icall' on t$e
&rovisions on t$e Matar%ngang &ambaranga' is !istressing.
He s$o%l! $ave ta+en 9%!icial notice t$ereo( ever min!(%l
t$at %n!er )ection 1 -%le 1/8 o( t$e -%les o( Co%rt co%rts
are man!atoril' re.%ire! to ta+e 9%!icial notice o( "t$e
o((icial acts o( t$e legislative e4ec%tive an! 9%!icial
!e&artments o( t$e =$ili&&ines." 6e $ave r%le! t$at a 9%!ge
is calle! %&on to e4$ibit more t$an 9%st a c%rsor'
ac.%aintance ,it$ t$e stat%tes an! &roce!%ral r%les. /1 He
s$o%l! $ave a&&lie! t$e revise! +atar%ngang &ambaranga'
la, %n!er t$e LGC. Ha! $e !one so t$is &etition ,o%l! not
$ave reac$e! %s an! ta+en val%able attention an! time
,$ic$ co%l! $ave been !evote! to more im&ortant cases.
*n vie, o( t$e &rivate res&on!entsH (ail%re to a&&ear at t$e
(irst sc$e!%le! me!iation on /8 #&ril 1881 (or ,$ic$ t$e
me!iation ,as reset to /G Ma' 1881 no com&laint (or slig$t
&$'sical in9%ries co%l! be vali!l' (ile! ,it$ t$e M2C o( Ma+ati
at an' time be(ore s%c$ !ate. 2$e (iling t$en o( Criminal
Cases Nos. 10C/11 an! 10C/10 ,it$ t$e sai! co%rt on 11
Ma' 1881 ,as &remat%re an! &%rs%ant to &aragra&$ ;a<
)ection 01/ o( t$e LGC res&on!ent 7%!ge Contreras s$o%l!
$ave grante! t$e motion to !ismiss t$e criminal cases. He
cannot 9%sti(' its !enial b' ta+ing re(%ge %n!er )ection G o(
=.D. No. 1C58 ;more &ro&erl' )ection 01/;b<;0< o( t$e LGC<
,$ic$ states t$at t$e &arties ma' go !irectl' to co%rt ,$ere
t$e action is abo%t to &rescribe. 2$is is beca%se as earlier
state! &%rs%ant to &aragra&$ ;c< )ection 015 o( t$e Co!e
t$e &rescri&tive &erio! ,as a%tomaticall' s%s&en!e! (or a
ma4im%m &erio! o( si4t' !a's (rom /1 #&ril 1881 ,$en t$e
&rivate res&on!ents (ile! t$eir com&laints ,it$ t$e l%&on o(
KalenB%ela Ma+ati.
Moreover $aving bro%g$t t$e !is&%te be(ore t$e l%&on o(
baranga' KalenB%ela Ma+ati t$e &rivate res&on!ents are
esto&&e! (rom !isavo,ing t$e a%t$orit' o( t$e bo!' ,$ic$
t$e' t$emselves $a! so%g$t. 2$eir act o( tri(ling ,it$ t$e
a%t$orit' o( t$e l%&on b' %n9%sti(iabl' (ailing to atten! t$e
sc$e!%le! me!iation $earings an! instea! (iling t$e
com&laint rig$t a,a' ,it$ t$e trial co%rt cannot be
co%ntenance! (or to !o so ,o%l! ,rea+ $avoc on t$e
baranga' conciliation s'stem.
Granting arg%en!o t$at t$e &etitioner !i! in(lict t$e allege!
&$'sical in9%ries t$e o((ense (or ,$ic$ s$e ma' be liable
,o%l! onl' be slig$t &$'sical in9%ries %n!er &aragra&$ ;/<
#rticle /GG o( t$e -evise! =enal Co!e consi!ering t$at &er
t$e me!ical certi(icates // t$e in9%ries s%staine! b' t$e
&rivate res&on!ents ,o%l! "$eal" in nine !a's "in t$e
absence o( com&lication" an! t$ere is no s$o,ing t$at t$e
sai! in9%ries inca&acitate! t$em (or labor or ,o%l! re.%ire
me!ical atten!ance (or s%c$ &erio!. 2$e &enalt' t$ere(or
,o%l! onl' be "arresto menor or a (ine not e4cee!ing /55
&esos an! cens%re." 2$ese &enalties are lig$t %n!er #rticle
/C o( t$e -evise! =enal Co!e an! ,o%l! &rescribe in t,o
mont$s &%rs%ant to #rticle 85.
#ccor!ingl' since t$e slig$t &$'sical in9%ries c$arge! in
Criminal Cases Nos. 10C/11 an! 10C/10 ,ere allege!l'
in(licte! on 17 #&ril 1881 t$e &rescri&tive &erio! t$ere(or
,o%l! $ave e4&ire! t,o mont$s t$erea(ter. Nevert$eless its
r%nning ,as tolle! b' t$e (iling o( t$e &rivate res&on!entsH
com&laints ,it$ t$e l%&on o( KalenB%ela Ma+ati on /1 #&ril
1881 an! a%tomaticall' s%s&en!e! (or a &erio! o( si4t'
!a's or %ntil // 7%ne 1881. *( no me!iation or conciliation
co%l! be reac$e! ,it$in t$e sai! &erio! o( s%s&ension an!
accor!ingl' a certi(ication to (ile action is iss%e! t$e
&rivate res&on!ents ,o%l! still $ave (i(t'Dsi4 !a's ,it$in
,$ic$ to (ile t$eir se&arate criminal com&laints (or s%c$
o((ense. 3vi!entl' t$ere ,as no basis (or t$e invocation b'
t$e res&on!ent 9%!ge o( t$e e4ce&tion &rovi!e! (or in
&aragra&$ ;b< )ection 01/ o( t$e LGC.
Neit$er are ,e &ers%a!e! b' t$e reasoning o( t$e
res&on!ent 7%!ge t$at t$e &etitioner "$a! alrea!' ,aive!
t$e rig$t to a reconciliation &rocee!ings be(ore t$e
baranga' o( KalenB%ela Ma+ati consi!ering t$at t$e
acc%se! an! t$e com&lainant are resi!ents o( !i((erent
1/1
baranga's." 2$e &etitioner !i! not ,aive t$e reconciliation
&rocee!ings be(ore t$e l%&on o( KalenB%ela Ma+atiA s$e
s%bmitte! to it an! atten!e! t$e sc$e!%le! conciliation on
/8 #&ril 1881 an! invo+e! t$e &reDcon!ition o( re(erral to
t$e l%&on in $er co%nterDa((i!avit.
Nor ,o%l! t$is Co%rt acce&t t$e contention o( t$e &rivate
res&on!ent t$at t$e &arties co%l! not agree on a
com&romise an! t$at t$e' $a! to re.%est t$e baranga'
ca&tain to iss%e a certi(ication to (ile action. 2$e re.%est is
!ate! /1 7%ne 1881 or nearl' one an! a $al( mont$s a(ter
Criminal Cases Nos. 10C/11 an! 10C/10 ,ere (ile! ,it$ t$e
co%rt a .%o. 3vi!entl' t$is ,as !one to s%&&ort t$eir
contention in t$e sai! co%rt t$at in an' event t$ere ,as
s%bstantial com&liance ,it$ t$e re.%irement o( re(erral to
t$e l%&on. *t m%st be stresse! t$at t$e &rivate res&on!ents
a(ter (ailing to a&&ear at t$e initial con(rontation an! long
a(ter t$e criminal cases ,ere (ile! $a! no rig$t to !eman!
t$e iss%ance o( a certi(ication to (ile action.
2$e res&on!ent 9%!ge t$%s acte! ,it$ grave ab%se o(
!iscretion in re(%sing to !ismiss Criminal Cases Nos. 10C/11
an! 10C/10.
=arties to !is&%tes cogniBable b' t$e l%&on s$o%l! ,it$
sincerit' e4$a%st t$e reme!ies &rovi!e! b' t$at la,
government &rosec%tors s$o%l! e4ercise !%e !iligence in
ascertaining com&liance ,it$ it an! trial co%rts s$o%l! not
$esitate to im&ose t$e a&&ro&riate sanctions (or nonD
com&liance t$ereo(.
7ingarts v. Me3ia
Facts: #!ministrative com&laints ,ere (ile! against 7%!ge Me9ia in
connection ,it$ 1 criminal cases !eci!e! b' $im. One o( t$em is
Crim. Case /GG0 ,$ic$ ,as (ile! b' Col. M%nar against 7o$an
6ingarts (or grave t$reats. *nitiall' 7%!ge Me9ia too+ cogniBance o(
t$e case an! iss%e! a ,arrant o( arrest against 6ingart. Ho,ever
$e later !ismisse! t$e same an! in!orse! it to t$e baranga' o((icial
concerne! (or baranga' conciliation. *n t$e &resent case 6ingarts
c$arges 7%!ge Me9ia ,it$ incom&etence ignorance o( t$e la, an!
ab%se o( a%t$orit' (or ta+ing cogniBance o( Crim Case /GG0 an!
iss%ing a ,arrant o( arrest !es&ite t$e lac+ o( &rior baranga'
conciliation. *n its Memoran!%m t$e O((ice o( t$e Co%rt
#!ministrator ma!e t$e (ollo,ing (in!ings:t$at %n!er #rt. 058;c<
C$a&ter 7 2itle One Boo+ *** LocGov Co!e o((enses &%nis$able b'
im&risonment not e4cee!ing 1 'ear or a (ine not e4cee!ing =C555
re.%ire &rior baranga' conciliation. t$at t$e crime o( grave t$reats
(alls ,it$in t$e &%rvie, o( t$is section. t$at #rt. 01/;a< li+e,ise
&rovi!e! t$e (ollo,ing: CONC*L*#2*ON D ;a< =recon!ition to (iling o(
Com&laint in Co%rt D No com&laint &etition action or &rocee!ing
involving an' matter ,it$in t$e a%t$orit' o( t$e l%&on s$all be (ille!
;)*C< or instit%te! !irectl' in co%rt or an' ot$er government o((ice
(or a!9%!ication %nless t$ere $as been a con(rontation bet,een t$e
&arties be(ore t$e l%&on c$airman or t$e &ang+at an! t$at no
conciliation or settlement $as been reac$e! as certi(ie! b' t$e
l%&on secretar' or &ang+at secretar' as atteste! to b' t$e l%&on or
&ang+at c$airman or %nless t$e settlement $as been re&%!iate! b'
t$e &arties t$ereto. 2$e Co%rt #!ministrator later concl%!e! t$e
(ollo,ing: "Ha! res&on!ent 7%!ge observe! t$e man!ate o( t$e
a(ore.%ote! &rovision o( la, $e co%l! $ave reman!e! t$e case to
t$e l%&on instea! o( ta+ing cogniBance t$ereo( an! &remat%rel'
iss%ing t$e ,arrant o( arrest against t$e acc%se!. )%c$ an
act%ation $o,ever !oes not a&&ear to be tainte! ,it$ malice or
evil intent. #s can be gleane! (rom t$e recor!s res&on!ent 7%!ge
!ismisse! Criminal Case No. /GG0 in $is Or!er o( #&ril 1G 1881
%&on motion o( t$e !e(ense co%nsel. 2$is not,it$stan!ing
a!ministrative sanction is ,arrante! against res&on!ent 7%!ge.
*ss%e: 6ON 7%!ge Me9ia is liable (or incom&etence an! gross
ignorance o( t$e la, (or ta+ing cogniBance o( t$e case ,$en s%c$
,as not (irst s%bmitte! to t$e Matar%ngang =ambaranga' (or
conciliation. :3).
#lt$o%g$ t$ere is no clear &roo( o( malice ba! (ait$ bias or
&artialit' on $is &art 7%!ge Me9ia s$o%l! $ave e4ercise! t$e
re.%isite &r%!ence es&eciall' %n!er t$e environmental
circ%mstances o( t$e a(oresai! criminal case ,$ere &ersonal
libert' ,as involve!. He s$o%l! $ave care(%ll' e4amine! all
relevant (acts an! iss%es an! avoi!e! t$e im&rovi!ent
iss%ance o( t$e ,arrant o( arrest ,it$o%t a circ%ms&ect
revie, o( t$e case ,$ic$ a(ter all !i! not e4$ibit abstr%se
(act%al matters or com&licate! legal .%estions. 2$e &resent
controvers' co%l! $ave been avoi!e! $a! $e +e&t (ait$ ,it$
t$e in9%nction t$at a member o( t$e benc$ m%st
contin%o%sl' +ee& $imsel( abreast o( legal an!
9%ris&r%!ential !evelo&ments beca%se t$e learning &rocess
in la, never ceases. #bsence o( ba! (ait$ P (act t$at 7%!ge
1//
Me9ia s%bse.%entl' iss%e! an or!er to recall t$e ,arrant o(
arrest mitigates b%t ,ill not altoget$er e4c%l&ate $im (rom
t$e c$arge. 7%!ge Me9ia ,as or!er to &a' a =/555 (ine ,it$
stern ,arning.
7%!ges are !irecte! to !esist (rom im&rovi!entl' receiving
an! !es%ltoril' acting on com&laints &etitions actions or
&rocee!ings in cases (alling ,it$in t$e a%t$orit' o( t$e
L%&on 2aga&ama'a&a. =rocee!ings be(ore t$e l%&on are a
&recon!ition to t$e (iling o( an' action or &rocee!ing in co%rt
or ot$er government o((ice. )%c$ an initiator' &lea!ing i(
(ile! ,it$o%t com&liance ,it$ t$e &recon!ition ma' be
!ismisse! on motion o( an' intereste! &art' on t$e gro%n!
t$at it (ails to state a ca%se o( action.
Corpuz v. CA
Facts: Cor&%B (ile! an action (or %nla,(%l !etainer against &rivate
res&on!ent #lvara!o ,it$ t$e Metro&olitan 2rial Co%rt o( Manila
Branc$ G (or recover' o( &ossession o( t$e room being occ%&ie! b'
t$e latter ,$ic$ Cor&%BH c$il!ren allege!l' nee!e! (or t$eir o,n
%se. #lvara!o an! Cor&%B ,ere t,o o( t$e tenants o( a certain
LorenBo Barre!o ,$o in Ma' 1888 !eci!e! to sell $is &ro&ert' to
t$e tenants. D%e to economic !i((ic%lties $o,ever #lvara!o an!
t$e ot$er lessees e4ec%te! an "#((i!avit o( 6aiver" granting
Barre!o t$e rig$t to sell $is $o%se to an' &erson ,$o can a((or! to
&%rc$ase t$e same. Conse.%entl' Barre!o sol! $is $o%se to
Cor&%B (or =17C55.55. #s a res%lt o( t$e sale a tenanc'
relations$i& ,as establis$e! bet,een Cor&%B an! #lvara!o. *n
October 1881 Cor&%B sent a ,ritten notice to #lvara!o !eman!ing
t$at $e vacate t$e room ,$ic$ $e ,as occ%&'ing beca%se t$e
c$il!ren o( Cor&%B nee!e! it (or t$eir o,n %se. #lvara!o re(%se! to
vacate t$e room as !eman!e! &rom&ting Cor&%B to see+ $is
e9ectment. *n $is ans,er #lvara!o raise! t,o ma9or !e(enses to
,it: ;1< t$e allege! "#((i!avit o( 6aiver" e4ec%te! bet,een $im an!
Barre!o ,as a (orger'A an! ;/< t$e !is&%te ,as not re(erre! to t$e
L%&ong 2aga&a'a&a. Fin!ing t$e !e(enses o( #lvara!o to be
,it$o%t merit t$e M2C o( Manila $an!e! !o,n on a !ecision
or!ering #lvara!o to vacate t$e room. On a&&eal t$e -2C reverse!
an! !eci!e! t$at t$e &%r&orte! sale bet,een Cor&%B an! Barre!o
,as t$e s%b9ect o( a controvers' &en!ing be(ore t$e National
Ho%sing #%t$orit' ;NH#< ,$ic$ m%st be resolve! (irst b' sai!
agenc'. *t also concl%!e! t$at t$e "#((i!avit o( 6aiver" e4ec%te!
b' #lvara!o an! Barre!o ,as a (orger'. Conse.%entl' it or!ere!
t$e !ismissal o( t$e case (or %nla,(%l !etainer an! r%le! t$at
#lvara!o cannot be legall' e4&elle! (rom t$e s%b9ect &remises. M-
!enie!. C# a((irme!. M- !enie!.

*ss%es: 1. 6ON Cor&%BH %nla,(%l !etainer s%it (ile! be(ore t$e
M2C against #lvara!o s$o%l! be s%s&en!e! %ntil t$e resol%tion o(
t$e case lo!ge! in t$e NH# im&%gning t$e sale o( sai! &ro&ert'
/. 6ON t$e "#((i!avit o( 6aiver" bet,een Cor&%B an! Barre!o
,as a%t$entic
*t is elementar' t$at t$e M2C $as e4cl%sive 9%ris!iction over
e9ectment cases. #s t$e la, no, stan!s t$e onl' iss%e to be
resolve! in (orcible entr' an! %nla,(%l !etainer cases is t$e
&$'sical or material &ossession over t$e real &ro&ert' t$at
is &ossession !e (acto.
-e(%gia v.C#: "*n t$e case o( De la )anta vs. Co%rt o(
#&&eals et al. t$is Co%rt in ma+ing a !istinction bet,een
t$e rece&tion o( evi!ence an! t$e resol%tion o( t$e iss%e o(
o,ners$i& $el! t$at t$e in(erior co%rt ma' loo+ into t$e
evi!ence o( title or o,ners$i& an! &ossession !e 9%re inso(ar
as sai! evi!ence ,o%l! in!icate or !etermine t$e nat%re o(
&ossession. *t cannot $o,ever resolve t$e iss%e o(
o,ners$i& t$at is b' !eclaring ,$o among t$e &arties is
t$e tr%e an! la,(%l o,ner o( t$e s%b9ect &ro&ert' beca%se
t$e resol%tion o( sai! iss%e ,o%l! e((ect an a!9%!ication on
o,ners$i& ,$ic$ is not sanctione! in t$e s%mmar' action (or
%nla,(%l !etainer. 6it$ t$is as a &remise an! ta+ing into
consi!eration t$e amen!ment intro!%ce! b' Batas
=ambansa Blg. 1/8 it ma' be s%ggeste! t$at in(erior co%rts
are no, con!itionall' veste! ,it$ a!9%!icator' &o,er over
t$e iss%e o( title or o,ners$i& raise! b' t$e &arties in an
e9ectment s%it."
)ince t$e &resent &etition involves t$e iss%e o( &ossession
intert,ine! ,it$ t$e iss%e o( o,ners$i& ;i.e. t$e controvers'
&en!ing in t$e NH#< t$e !octrinal &rono%ncement in
-e(%gia is a&&licable.
2$e &revailing !octrine is t$at s%its or actions (or t$e
ann%lment o( sale title or !oc%ment !o not abate an'
e9ectment action res&ecting t$e same &ro&ert'.
6ilmor #%to )%&&l' Constr%ction Com&an' Cor&orations et
al. v. C#: o%tline! t$e (ollo,ing cases involving t$e
ann%lment o( t$e title or !oc%ment over t$e &ro&ert' ,$ic$
1/1
s$o%l! not be consi!ere! in t$e abatement o( an e9ectment
s%it to ,it: "Neit$er !o s%its (or ann%lment o( sale or title
or !oc%ment a((ecting &ro&ert' o&erate to abate e9ectment
actions res&ecting t$e same &ro&ert'. Clearl' t$e
%n!erl'ing reason (or t$e above r%lings is (or t$e !e(en!ant
not to tri(le ,it$ t$e e9ectment s%it ,$ic$ is s%mmar' in
nat%re b' t$e sim&le e4&e!ient o( asserting o,ners$i&
t$ereon. 2$%s t$e controvers' &en!ing be(ore t$e NH# (or
t$e ann%lment o( t$e Dee! o( )ale an! assailing t$e
a%t$enticit' o( t$e "#((i!avit o( 7oint 6aiver" cannot !eter
t$e M2C (rom ta+ing cogniBance o( t$e e9ectment s%it
merel' (or t$e &%r&ose o( !etermining ,$o $as a better
&ossessor' rig$t among t$e &arties.
*t ma' be stresse! t$at #lvara!o is not ,it$o%t reme!'. 6e
$ave r%le! t$at a 9%!gment ren!ere! in an e9ectment case
s$all not bar an action bet,een t$e same &arties
res&ecting title to t$e lan! or b%il!ing nor s$all it be
concl%sive as to t$e (acts t$erein (o%n! in a case bet,een
t$e same &arties %&on a !i((erent ca%se o( action involving
&ossession.
F%rt$ermore #lvara!o raises t$e iss%e in t$e instant &etition
t$at t$e e9ectment s%it ,as not re(erre! to t$e L%&on
2aga&a'a&a as re.%ire! b' =resi!ential Decree No. 1C58.
6e are not &ers%a!e!. 2$is !e(ense ,as onl' state! in a
single general s$ort sentence in #lvara!oHs ans,er. 6e
$ave $el! in D%i v. Co%rt o( #&&eals t$at (ail%re o( a &art' to
s&eci(icall' allege t$e (act t$at t$ere ,as no com&liance
,it$ t$e Baranga' conciliation &roce!%re constit%tes a
,aiver o( t$at !e(ense. # &er%sal o( #lvara!oHs ans,er
reveals t$at no reason or e4&lanation ,as given to s%&&ort
$is allegation ,$ic$ is !eeme! a mere general averment.
*n an' event t$e &rocee!ing o%tline! in =.D. 1C58 is not a
9%ris!ictional re.%irement an! nonDcom&liance t$ere,it$
cannot a((ect t$e 9%ris!iction ,$ic$ t$e lo,er co%rt $a!
alrea!' ac.%ire! over t$e s%b9ect matter an! t$e &arties
t$erein.
1/0
Boni!acio La" O!!ice v. Bellosillo
Facts: *n a letterDcom&laint !ate! #%g%st /8 1887 #tt'. -icar!o M.
)alomon 7r. o( t$e Boni(acio La, O((ice c$arge! t$en acting 7%!ge
-e'nal!o B. Bellosillo o( t$e Metro&olitan 2rial Co%rt o( W%eBon
Cit' Branc$ 10 ,it$ ignorance o( t$e la, grave ab%se o(
!iscretion an! obvio%s &artialit'. )alomon assails t$e Or!er !ate!
#&ril / 188G re(erring t$e sai! e9ectment case bac+ to t$e
baranga' (or conciliation &rocee!ings !es&ite t$e (act t$at it ,as
allege! in t$e veri(ie! com&laint t$at t$e matter $a! alrea!' been
re(erre! to t$e baranga' an! t$at a co&' o( t$e Certi(ication to File
Motion ,as attac$e! UtoV t$e veri(ie! com&laint as #NN3J 3
t$ereo(. Be,il!ere! ,it$ s%c$ Or!er $e trie! to tal+ ,it$
res&on!ent 9%!ge b%t ,as &revente! to !o so beca%se o( t$e strict
an! e4tremel' tig$t ]cor!on sanitaire> o( t$e latter. He t$en
in.%ire! (rom t$e res&on!ent>s branc$ cler+ o( co%rt t$e reason
be$in! s%c$ or!er an! $e ,as a!vise! t$at &er$a&s $e s$o%l!
s%bmit t$e min%tes o( t$e $earings $el! in t$e baranga'. Follo,ing
sai! a!vice $e (ile! a com&liance ,it$ res&on!ent>s co%rt
attac$ing t$ere,it$ a co&' o( $is com&laint (ile! be(ore t$e
baranga' an! t$e min%tes o( t$e &rocee!ings $el! t$ereat. #(ter
t$e (iling o( sai! com&liance no action ,as ta+en b' t$e co%rt
!es&ite t$e (act t$at t$e case (alls %n!er t$e -%le on )%mmar'
=roce!%re an! res&on!ent 9%!ge $as still to come %& ,it$ a
!etermination as to ,$et$er s%mmons s$o%l! be iss%e! or not. He
t$en in.%ire! &ersonall' ,it$ t$e co%rt abo%t t$e stat%s o( t$e case
an! $e ,as tol! t$at no action co%l! be ta+en %nless t$e Or!er o(
#&ril / 188G $a! been com&lie! ,it$. Disma'e! b' t$e Co%rt>s
insistence o( re(erring t$e case to t$e baranga' t$o%g$ it $a!
alrea!' gone t$ro%g$ all t$e re.%isite &rocee!ings t$ereat $e
!eci!e! not to &%rs%e t$e case an! (ile! a notice to ,it$!ra,
com&laint !ate! #%g%st /5 188G. )ai! ,it$!ra,al $o,ever ,as
!enie! b' res&on!ent on t$e basis o( t$e action alrea!' ta+en
t$ereon as containe! in t$e .%estione! Or!er !ate! #&ril / 188G.
He t$en (ile! a Notice o( Dismissal b%t t$e same ,as still %nacte!
%&on b' res&on!ent. *t ,as onl' a(ter a 'ear (rom t$e time t$e
com&laint ,as (ile! t$at res&on!ent or!ere! t$at s%mmons be
serve! on !e(en!ants. 6$en !e(en!ants (aile! to (ile an #ns,er
$e ;com&lainant< (ile! a Motion to -en!er 7%!gment in accor!ance
,it$ t$e &rovisions o( )ec.C o( t$e -%le on )%mmar' =roce!%re.
Ho,ever instea! o( ren!ering 9%!gment res&on!ent merel'
re.%ire! !e(en!ants to comment on t$e motion to ren!er
9%!gment. #(ter !e(en!ants (ile! t$eir comment res&on!ent still
!i! not act on t$e sai! motion. 2$e inor!inate !ela' o( res&on!ent
on acting %&on sai! case $as ca%se! $im so m%c$ s%((ering as $is
(amil' is (orce! to rent a $o%se to live in at a mont$l' rental rate o(
=18555.55.
-es&on!ent>s arg%ment: *n all cases ,$ere t$ere is (ail%re o(
settlement o( me!iation &rocee!ings be(ore t$e Baranga'
C$airman it is necessar' t$at t$e =ang+at be constit%te! b' t$e
&arties (rom t$e L%&on members in or!er t$at t$e' ma' $ave a
secon! o&&ort%nit' to amicabl' settle t$eir !is&%te. *t is a
man!ator' !%t' o( t$e Baranga' C$airman to set t$e meeting o(
t$e &arties (or t$e constit%tion o( t$e =ang+at %&on (ail%re o(
&arties to amicabl' settle ot$er,ise t$ere is no com&liance ,it$ t$e
re.%irements o( =.D. 1C58 no, )ec. 01/ 1881 LGC. *n t$e case o(
com&lainant it a&&ears (rom t$e recor!s t$ereo( t$at t$ere ,as
1/C
&remat%re iss%ance o( t$e Certi(icate to File #ction consi!ering t$at
t$ere is no &roo( to s$o, t$at t$e =ang+at ,as !%l' constit%te!
be(ore t$e sai! certi(icate ,as iss%e!. Moreover t$e belate!
s%bmission b' com&lainant o( t$e Min%tes o( =rocee!ings be(ore
t$e Baranga' C$airman ,$ic$ ,as inacc%rate an! !i((ic%lt to
!eci&$er glaringl' reveals t$e nonDcom&liance o( com&lainant ,it$
t$e re.%irement o( t$e a(orecite! la,.
*ss%e: 6ON 7%!ge ,as correct inre(erring t$e case bac+ to t$e
baranga' (or conciliation &rocee!ings. :3).
Com&lainant conten!s t$at $e $as com&lie! ,it$ t$e
man!ator' baranga' conciliation &rocee!ings as evi!ence!
b' t$e Certi(ication to File #ction attac$e! to t$e Com&laint
(or e9ectment. 2$e recor!s $o,ever reveal t$at s%c$
Certi(ication ,as im&ro&erl' an! &remat%rel' iss%e!. *n
,$at a&&ears to be a &reD&rinte! stan!ar! (orm t$ereo( t$e
E4F be(ore t$e secon! en%merate! statement clearl' s$o,s
t$at no &ersonal con(rontation be(ore a !%l' constit%te!
=ang+at ng 2aga&ag+as%n!o too+ &lace. -es&on!ent>s
&osition t$at t$e =ang+at ,as not constit%te! an! t$at no
(ace to (ace conciliation o( t$e &arties $a! ta+en &lace
be(ore it is s%bstantiate! b' t$e Min%tes s%bmitte! b'
com&lainant. 3vi!entl' com&lainant (aile! to com&lete t$e
baranga' conciliation &rocee!ings. 6e also note t$at t$e
Com&laint be(ore t$e baranga' ,as !ate! Febr%ar' 1G
188G. -ecor!s s$o, t$at t$e $earing ,as sc$e!%le! (or
Febr%ar' /G 188G an! ,as reset (or Febr%ar' /8 188G.
#n! 'et t$e Certi(ication to File #ction U8V ,as iss%e! on
Marc$ 1 188G less t$an (i(teen !a's a(ter t$e (irst
sc$e!%le! $earing be(ore t$e baranga' c$airman.
)ection 015 ;b< o( t$e LGC is .%ote! $ere%n!er: EMe!iation
b' l%&on c$airman. X @&on recei&t o( t$e com&laint t$e
l%&on c$airman s$all ,it$in t$e ne4t ,or+ing !a' s%mmon
t$e res&on!ent;s< ,it$ notice to t$e com&lainant;s< (or
t$em an! t$eir ,itnesses to a&&ear be(ore $im (or a
me!iation o( t$eir con(licting interests. *( $e (ails in $is
me!iation e((ort ,it$in (i(teen ;1C< !a's (rom t$e (irst
meeting o( t$e &arties be(ore $im $e s$all (ort$,it$ set a
!ate (or t$e constit%tion o( t$e &ang+at in accor!ance ,it$
t$e &rovisions o( t$is C$a&ter.F
#!ministrative Circ%lar No. 10D81 &rovi!es: E*n or!er t$at
t$e la%!able &%r&ose o( t$e la, ma' not be s%bverte! an!
its e((ectiveness %n!ermine! b' in!iscriminate im&ro&er
an!?or &remat%re iss%ance o( certi(ications to (ile actions in
co%rt b' t$e L%&on or =ang+at )ecretaries atteste! b' t$e
L%&on?=ang+at C$airmen res&ectivel' t$e (ollo,ing
g%i!elines are $ereb' iss%e! (or t$e in(ormation o( trial
co%rt 9%!ges in cases bro%g$t be(ore t$em coming (rom t$e
Baranga'. EU**V 0. *( me!iation or conciliation e((orts be(ore
t$e =%nong Baranga' &rove! %ns%ccess(%l t$ere $aving
been no agreement to arbitrate ;)ec. 015D^b_ -evise! -%le
Matar%ngang =ambaranga' La,A )ec. 1cU1V -%le ***
Matar%ngang =ambaranga' -%les< or ,$ere t$e res&on!ent
(ails to a&&ear at t$e me!iation &rocee!ing be(ore t$e
=%nong Baranga' ;1r! &ar. )ec. 8a -%le K* Matar%ngang
=ambaranga' -%les< t$e =%nong Baranga' s$all not ca%se
t$e iss%ance o( t$is stage o( a certi(ication to (ile action
beca%se it is no, man!ator' (or $im to constit%te t$e
=ang+at be(ore ,$om me!iation conciliation or arbitration
&rocee!ings s$all be $el!. ***. #ll com&laints an!?or
in(ormations (ile! or ra((le! to 'o%r sala?branc$ o( t$e
-egional 2rial Co%rt Metro&olitan 2rial Co%rt or M%nici&al
2rial Co%rt s$all be care(%ll' rea! an! scr%tiniBe! to
!etermine i( t$ere $as been com&liance ,it$ &rior Baranga'
conciliation &roce!%re %n!er t$e -evise! Matar%ngang
=ambaranga' La, an! its *m&lementing -%les an!
-eg%lations as a &reDcon!ition to 9%!icial action &artic%larl'
,$et$er t$e certi(ication to (ile action attac$e! to t$e
recor!s o( t$e case com&l' ,it$ t$e re.%irements
$ereinabove en%merate! in &art **A ;3m&$asis an! italics
s%&&lie!< *K. # case (ile! in co%rt ,it$o%t com&liance ,it$
&rior Baranga' conciliation ,$ic$ is a &reDcon!ition (or
(ormal a!9%!ication 4 4 4 ma' be !ismisse! %&on motion o(
t$e !e(en!ant?s or t$e co%rt ma' s%s&en! &rocee!ings %&on
&etition o( an' &art'an! re(er t$e case mot% &ro&rio to t$e
a&&ro&riate Baranga' a%t$orit'.
3vi!entl' t$e baranga' (aile! to e4ert eno%g$ e((ort
re.%ire! b' la, to conciliate bet,een t$e &arties an! to
settle t$e case be(ore it. Hence res&on!ent 9%!ge ,as not
incorrect in reman!ing t$e case to it (or com&letion o( t$e
man!ate! &rocee!ings. 6e cannot (a%lt $im (or see+ing to
&romote t$e ob9ectives o( baranga' conciliation an! (or
ta+ing to $eart t$e &rovisions o( )%&reme Co%rt Circ%lar No.
10D81. His re(erral o( t$e case bac+ to t$e baranga' cannot
1/G
be e.%ate! ,it$ gross ignorance o( t$e la,. Neit$er !oes it
constit%te grave ab%se o( !iscretion or obvio%s &artialit'.
2$erea(ter com&lainant (ile! a Motion &ra'ing t$at t$e
&rocee!ings alrea!' $el! be(ore t$e baranga' be
consi!ere! as s%bstantial com&liance ,it$ t$e re.%irements
o( t$e la,. #cting on t$e Motion res&on!ent 9%!ge iss%e!
t$e s%mmons an! o&te! to contin%e ,it$ t$e co%rt
&rocee!ings ,it$o%t insisting on strict com&liance ,it$ t$e
man!ate! baranga' &rocee!ings. He !i! so a(ter noting
t$at com&lainant ,as a&&arentl' not ma+ing an' move to
com&lete t$e baranga' &rocee!ings a(ter t$e case $a! been
reman!e! to t$e baranga' an! t$at t$e case (ell %n!er t$e
-%les on )%mmar' =roce!%re.
)ection 18 o( t$e -%les on )%mmar' =roce!%re $o,ever
&rovi!es t$at s%c$ cases ma' be revive! onl' a(ter t$e
re.%irement (or conciliation $as been com&lie! ,it$.
Nevert$eless res&on!ent 9%!ge>s error is 9%!icial in nat%re
an! cannot be correcte! in a!ministrative &rocee!ings. #t
an' rate beca%se $e c$ose to contin%e ,it$ t$e
&rocee!ings o( t$e case an! beca%se res&on!ents (aile! to
ans,er t$e e9ectment Com&laint on time $e s$o%l! $ave
ren!ere! 9%!gment ,it$in t$irt' ;15< !a's (rom t$e
e4&iration o( t$e &erio! to (ile an ans,er. 2$is action is
re.%ire! %n!er t$e -%les on )%mmar' =rocee!ings ,$ic$
state: E)ec. G. 3((ect o( (ail%re to ans,er. D )$o%l! t$e
!e(en!ant (ail to ans,er t$e com&laint ,it$in t$e &erio!
above &rovi!e! t$e co%rt mot% &ro&rio or on motion o( t$e
&lainti(( s$all ren!er 9%!gment as ma' be ,arrante! b' t$e
(acts allege! in t$e com&laint an! limite! to ,$at is &ra'e!
(or t$erein
E)ec. 15. -en!ition o( 9%!gment. X 6it$in t$irt' ;15< !a's
a(ter recei&t o( t$e last a((i!avits an! &osition &a&ers or t$e
e4&iration o( t$e &erio! (or (iling t$e same t$e co%rt s$all
ren!er 9%!gment.F
Menova v. A!able
Facts: *n an a((i!avitDcom&laint !ate! 7%l' 1 1888 #bra$am L.
Men!ova c$arge! 7%!ge Crisanto B. #(able o( t$e M%nici&al Circ%it
2rial Co%rt o( )an 7%lianX)%lat 3astern )amar ,it$ ignorance o( t$e
la, relative to Criminal Case No. /188D88 E=eo&le o( t$e
=$ili&&ines =lainti(( vs. -oberto W. =ala!a #cc%se!F (or slig$t
&$'sical in9%ries. Com&lainant Men!ova allege! in $is a((i!avitD
com&laint t$at on Febr%ar' 18 1888 $e (ile! ,it$ t$e O((ice o( t$e
Baranga' C$airman o( =oblacion )an 7%lian 3astern )amar a
com&laint (or slig$t &$'sical in9%ries against -obert =ala!a.
Baranga' C$airman -onie D. W%int%a in $is Certi(ication !ate!
#&ril 18 1888 U1V con(irme! s%c$ (act. =ang+at C$airman 3%(emia
L. Cabago also certi(ie! in an %n!ate! EMin%tes *n )ettling
Dis&%tesF t$at t$e case ,as set (or $earing on Marc$ 1G // an!
/8 1888 b%t t$e &arties (aile! to reac$ an amicable settlement.
On Ma' 0 1888 com&lainant (ile! ,it$ t$e M%nici&al Circ%it 2rial
Co%rt o( )an 7%lianX)%lat 3astern )amar a com&laint (or slig$t
&$'sical in9%ries against =ala!a !oc+ete! as Criminal Case No.
/188D88. On November 1 1888 res&on!ent 9%!ge ren!ere! $is
Decision !ismissing t$e case on t$e gro%n! o( &rescri&tion t$%s:
"Com&laint in t$is case !ate! #&ril /5 1888 ,as (ile! ,it$ t$is
Co%rt on Ma' 0 1888. 2$e a((i!avits o( com&lainant as ,ell as
&rosec%tion ,itness Melvin C. W%iloRa ,ere s%bscribe! an! s,orn
to be(ore t$e %n!ersigne! also on Ma' 0 1888.
E2$e allege! o((ense too+ &lace on Febr%ar' 1C 1888. From t$e
!ate o( t$e commission o( t$e allege! o((ense more t$an t,o
mont$s $ave ela&se!.
E2$is is (or slig$t &$'sical in9%ries an! is t$ere(ore a lig$t o((ense.
E@n!er #rt. 88 o( t$e -evise! =enal Co!e criminal liabilit' is totall'
e4ting%is$e! b' &resci&tion o( t$e crime. E#rticle 85 o( t$e same
Co!e &rovi!es t$at lig$t o((enses &rescribe in t,o mont$s. 2$is
being a lig$t o((ense t$e same s$o%l! be consi!ere! as alrea!'
$aving &rescribe! beca%se t$e case against t$e acc%se! ,as (ile!
a(ter t,o mont$s.
EL32 2H3-3FO-3 t$is case be D*)M*))3D t$e crime $aving
alrea!' &rescribe!.
E)O O-D3-3D.F On 7%l' 7 1888 com&lainant (ile! ,it$ t$e O((ice
o( t$e Co%rt #!ministrator an a!ministrative com&laint against
res&on!ent 9%!ge. He allege! t$at in !ismissing t$e case
res&on!ent 9%!ge s$o,e! $is ignorance o( t$e la, ,$en $e !i! not
a&&l' t$e &rovisions o( )ection 015;c< o( -e&%blic #ct No. 71G5
;2$e LGC< ,$ic$ state: )ection 015. =roce!%re (or #micable
)ettlement ;c< )%s&ension o( &rescri&tive &erio! o( o((enses. X
6$ile t$e !is&%te is %n!er me!iation conciliation or arbitration t$e
&rescri&tive &erio!s (or o((enses an! ca%ses o( action %n!er
e4isting la,s s$all be interr%&te! %&on (iling o( t$e com&laint ,it$
t$e =%nong Baranga'. 2$e &rescri&tive &erio!s s$all res%me %&on
recei&t b' t$e com&lainant o( t$e com&laint or t$e certi(icate o(
re&%!iation or o( t$e certi(ication to (ile action iss%e! b' t$e L%&on
1/7
or =ang+at )ecretar': =rovi!e! $o,ever 2$at s%c$ interr%&tion
s$all not e4cee! si4t' ;G5< !a's (rom t$e (iling o( t$e com&laint
,it$ t$e &%nong baranga'." Com&lainant (%rt$er allege! t$at
res&on!entHs con!%ct ca%se! $im in9%r' an! grave in9%stice. *n $is
comment !ate! )e&tember 11 1888 res&on!ent a!mitte! t$at $is
Decision being assaile! b' com&lainant E,as ,rong.F #ccor!ing to
$im E;,<$en * ren!ere! t$e .%estione! !ecision ,$at entere! m'
min! ,as t$e r%le on &rescri&tion as &rovi!e! %n!er t$e -evise!
=enal Co!e. 2$ere ,as a mental la&se on m' &art ca%se! b' $eav'
,or+loa!F as $e ,as li+e,ise !esignate! t$e #cting =resi!ing
7%!ge o( MC2C LlorenteDHernani 3astern )amar. He begge! (or
+in!ness an! %n!erstan!ing stating t$at $e $as been a trial 9%!ge
(or 15 'ears an! t$at t$is is t$e E(irst +in! o( mista+eF $e $as ever
committe!.
*n its 3val%ation an! -ecommen!ation t$e O((ice o( t$e Co%rt
#!ministrator t$ro%g$ De&%t' Co%rt #!ministrator Zenai!a N.
3le&aRo (o%n! res&on!ent g%ilt' as c$arge! an! recommen!e!
t$at $e be (ine! =1555.55 ,it$ a ,arning t$at a commission o(
similar acts ,ill be !ealt ,it$ more severel'. Bot$ &arties (ile! t$eir
res&ective mani(estations t$at t$e' are ,illing to $ave t$e case so
!eci!e!. *n $is mani(estation res&on!ent 9%!ge ma!e t$e
a!!itional comment t$at t$e com&lainant !i! not allege ba! (ait$ or
malice on $is ;res&on!ent>s< &art in ren!ering t$e .%estione!
!ecision.
*ss%e: 1. 6ON res&on!ent 7%!ge is liable (or !ismissing t$e case on
t$e gro%n! o( &rescri&tion.
*t is a4iomatic as t$is Co%rt $as re&eate!l' stresse! t$at an
a!ministrative com&laint is not t$e a&&ro&riate reme!' (or
ever' irreg%lar or erroneo%s or!er or !ecision iss%e! b' a
9%!ge ,$ere a 9%!icial reme!' is available s%c$ as a motion
(or reconsi!eration or an a&&eal. For obvio%sl' i(
s%bse.%ent !evelo&ments &rove t$e 9%!ge>s c$allenge! act
to be correct t$ere ,o%l! be no occasion to &rocee! against
$im at all. Besi!es to $ol! a 9%!ge a!ministrativel'
acco%ntable (or ever' erroneo%s r%ling or !ecision $e
ren!ers ass%ming $e $as erre! ,o%l! be not$ing s$ort o(
$arassment an! ,o%l! ma+e $is &osition !o%bl' %nbearable.
2o $ol! ot$er,ise ,o%l! be to ren!er 9%!icial o((ice
%ntenable (or no one calle! %&on to tr' t$e (acts or
inter&ret t$e la, in t$e &rocess o( a!ministering 9%stice can
be in(allible in $is 9%!gment. *t is onl' ,$ere t$e error is so
gross !eliberate an! malicio%s or inc%rre! ,it$ evi!ent ba!
(ait$ t$at a!ministrative sanctions ma' be im&ose! against
t$e erring 9%!ge.
Flores vs. #besamis: E#s ever'one +no,s t$e la, &rovi!es
am&le 9%!icial reme!ies against errors or irreg%larities being
committe! b' a 2rial Co%rt in t$e e4ercise o( its 9%ris!iction.
2$e or!inar' reme!ies against errors or irreg%larities ,$ic$
ma' be regar!e! as normal in nat%re ;i.e. error in
a&&reciation or a!mission o( evi!ence or in constr%ction or
a&&lication o( &roce!%ral or s%bstantive la, or legal
&rinci&le< incl%!e a motion (or reconsi!eration ;or a(ter
ren!ition o( a 9%!gment or (inal or!er a motion (or ne,
trial< an! a&&eal. 2$e e4traor!inar' reme!ies against error
or irreg%larities ,$ic$ ma' be !eeme! e4traor!inar' in
c$aracter ;i.e. ,$imsical ca&ricio%s !es&otic e4ercise o(
&o,er or neglect o( !%t' etc.< are inter alia t$e s&ecial civil
actions o( certiorari &ro$ibition or man!am%s or a motion
(or in$ibition a &etition (or c$ange o( ven%e as t$e case
ma' be. ENo, t$e establis$e! !octrine an! &olic' is t$at
!isci&linar' &rocee!ings an! criminal actions against 7%!ges
are not com&lementar' or s%&&letor' o( nor a s%bstit%te
(or t$ese 9%!icial reme!ies ,$et$er or!inar' or
e4traor!inar'. -esort to an! e4$a%stion o( t$ese 9%!icial
reme!ies as ,ell as t$e entr' o( 9%!gment in t$e
corres&on!ing action or &rocee!ing are &reDre.%isites (or
t$e ta+ing o( ot$er meas%res against t$e &ersons o( t$e
9%!ges concerne! ,$et$er o( civil a!ministrative or
criminal nat%re. *t is onl' a(ter t$e available 9%!icial
reme!ies $ave been e4$a%ste! an! t$e a&&ellate trib%nals
$ave s&o+en ,it$ (inalit' t$at t$e !oor to an in.%ir' into $is
criminal civil or a!ministrative liabilit' ma' be sai! to $ave
o&ene! or close!. EFlores ;com&lainant< resorte! to
a!ministrative &rosec%tion ;or instit%tion o( criminal actions<
as a s%bstit%te (or or s%&&lement to t$e s&eci(ic mo!es o(
a&&eals or revie, &rovi!e! b' la, (rom co%rt 9%!gments or
or!ers on t$e t$eor' t$at t$e 7%!ges> or!ers $a! ca%se!
$im ]%n!%e in9%r'.> 2$is is im&ermissible as t$is Co%rt $as
alrea!' more t$an once r%le!. La, an! logic !ecree t$at
]a!ministrative or criminal reme!ies are neit$er alternative
nor c%m%lative to 9%!icial revie, ,$ere s%c$ revie, is
available an! m%st ,ait on t$e res%lt t$ereo(. *n!ee! since
9%!ges m%st be (ree to 9%!ge ,it$o%t &ress%re or in(l%ence
1/8
(rom e4ternal (orces or (actors t$e' s$o%l! not be s%b9ect to
intimi!ation t$e (ear o( civil criminal or a!ministrative
sanctions (or acts t$e' ma' !o an! !is&ositions t$e' ma'
ma+e in t$e &er(ormance o( t$eir !%ties an! (%nctionsA an!
it is so%n! r%le ,$ic$ m%st be recogniBe! in!e&en!entl' o(
stat%te t$at 9%!ges are not generall' liable (or acts !one
,it$in t$e sco&e o( t$eir 9%ris!iction an! in goo! (ait$A an!
t$at e4ce&tionall' &rosec%tion o( a 9%!ge can be $a! onl' i(
]t$ere be a (inal !eclaration b' a com&etent co%rt in some
a&&ro&riate &rocee!ing o( t$e mani(estl' %n9%st c$aracter o(
t$e c$allenge! 9%!gment or or!er an! 4 4 4 also evi!ence
o( malice or ba! (ait$ ignorance or ine4c%sable negligence
on t$e &art o( t$e 9%!ge in ren!ering sai! 9%!gment or or!er>
or %n!er t$e stringent circ%mstances set o%t in #rticle 1/ o(
t$e Civil Co!e.
*n t$e &resent case ,e notice! (rom t$e recor!s be(ore %s
t$at t$e com&lainant !i! not bot$er at all to (ile a motion (or
reconsi!eration o( res&on!ent 9%!ge>s !ecision !ismissing
t$e criminal case. No reason ,as a!vance! b' com&lainant
,$' $e (aile! to !o so. 2$%s (ollo,ing o%r settle!
&rono%ncements cite! above $is instant a!ministrative
com&laint is &remat%re.
#ccor!ing to com&lainant -obert =ala!a committe! t$e
crime o( slig$t &$'sical in9%ries on Febr%ar' 1C 1888. On
Febr%ar' 18 1888 com&lainant (ile! $is com&laint ,it$ t$e
O((ice o( t$e Baranga' C$airman at =oblacion )an 7%lian
3astern )amar. =%rs%ant to t$e &rovisions o( )ection 015;c<
o( 2$e LGC .%ote! earlier s%c$ (iling interr%&te! t$e
&rescri&tive &erio! U8V an! starte! to r%n again %&on recei&t
b' t$e com&lainant o( t$e Certi(ication to File #ction iss%e!
b' t$e =ang+at )ecretar'. Here recor!s (ail to s$o, ,$en
com&lainant receive! t$e Baranga' Certi(ication to File
#ction. 2$e %n!ate! certi(ication $e s%bmitte! merel'
states t$at t$e case ,as set (or $earing be(ore t$e baranga'
on Marc$ 1G // an! /8 1888 b%t t$e &arties (aile! to
reac$ an amicable settlement. 6$en $e (ile! on Ma' 0
1888 Criminal Case No. /188D88 (or slig$t &$'sical in9%ries
,it$ res&on!entHs co%rt %ntil t$e !ismissal o( t$e case on
November 1 1888 $e still (aile! to &resent &roo( o( $is
recei&t o( t$e Baranga' Certi(ication to File #ction. Clearl'
$e cannot no, (a%lt res&on!ent 9%!ge (or !ismissing t$e
case on t$e gro%n! o( &rescri&tion.
ALA v. Letrono;Monte3o
Facts: 2$e =resi!ent o( t$e =$ili&&ines !eclare! December 0 188/
a "s&ecial !a'" (or t$e $ol!ing o( election (or )angg%niang
Mabataan ;)M< t$ro%g$o%t t$e nation. 3m&lo'ees &%rs%ant to t$eir
CB# s%bse.%entl' (ile! claims (or t$e &a'ment to t$em o( $oli!a'
&a' (or t$at !a'. =rivate res&on!ent $o,ever re(%se! t$eir claims
on t$e gro%n! t$at December 0 188/ ,as not a reg%lar $oli!a'
,it$in t$e contem&lation o( t$e CB#.
*ss%e: 6ON t$e )angg%niang Mabataan 3lection Da' consi!ere! a
reg%lar $oli!a' (or &%r&ose o( t$e CB#.
6e $ol! t$at it is an! t$at in !en'ing &etitionerHs claim
res&on!ent Kol%ntar' #rbitrator !enie! members o(
&etitioner %nion s%bstantial 9%stice as a res%lt o( $er
erroneo%s inter&retation o( t$e CB# t$ereb' 9%sti('ing
9%!icial revie,.
First. 2$e )angg%niang Mabataan ;)M< is &art o( t$e local
government str%ct%re. 2$e LGC ;-e&. #ct. No. 71G5< creates
in ever' baranga' a )angg%niang Mabataan com&ose! o( a
c$airman seven ;7< members a secretar' an! a treas%rer.
1 2$e c$airman an! t$e seven members are electe! b' t$e
Mati&%nan ng Mabataan ,$ic$ is com&ose! o( citiBens o( t$e
=$ili&&ines resi!ing in t$e baranga' (or at least si4 ;G<
mont$s ,$o are bet,een t$e ages o( 1C an! /1 an! ,$o
are registere! as members. 2$e c$airman o( t$e )M is an e4
o((icio member o( t$e )angg%niang Barangga' ,it$ t$e
same &o,ers !%ties (%nctions an! &rivileges as t$e reg%lar
members o( t$e )angg%niang Baranga'. C 2$e =resi!ent o(
t$e =e!eras'on ng mga )angg%niang Mabataan ,$ic$ is
im&ose! o( t$e )M c$airmen o( t$e sangg%niang +abataan o(
t$e baranga's in t$e &rovince cit' or m%nici&alit' is an e4
o((icio member o( t$e )angg%niang =anlala,igan
)angg%niang =anl%ngso! an! )angg%niang Ba'an. Hence
as t$e )olicitor General &oints o%t t$e election (or members
o( t$e )M ma' &ro&erl' be consi!ere! a "local election"
,it$in t$e meaning o( #rt. K** sec 1 o( t$e CB# an! t$e !a'
on ,$ic$ it is $el! to be a $oli!a' t$ereb' entitling
&etitioners members at t$e #M) Farming Cor&. to t$e
&a'ment o( $oli!a' on s%c$ !a'.
1/8
)econ!. 2$e Kol%ntar' #rbitrator $el! $o,ever t$at t$e
election (or members o( t$e )M cannot be consi!ere! a local
election as t$e election (or Governors Kice Governors
Ma'ors an! Kice Ma'ors an! t$e vario%s local legislative
assemblies ;sangg%nians< beca%se t$e )M election is
&artici&ate! in onl' b' t$e 'o%t$ ,$o are bet,een t$e ages
o( 1C an! /1 an! (or t$is reason t$e !a' is not a non,or+ing
$oli!a'. 2o begin ,it$ it is not tr%e t$at December 0 188/
,as not a non,or+ing $oli!a'. *t ,as a non,or+ing $oli!a'
an! t$is ,as anno%nce! in t$e me!ia. 7 *n =roclamation No.
118 !ate! December / 188/ =resi!ent -amos !eclare! t$e
!a' as "a s&ecial !a' t$ro%g$ t$e co%ntr' on t$e occasion o(
t$e )angg%niang Mabataan 3lections" an! en9oine! all "local
government %nits t$ro%g$ t$eir res&ective C$ie( Local
34ec%tives UtoV e4ten! all &ossible assistance an! s%&&ort to
ens%re t$e smoot$ con!%ct o( t$e general elections."
# "s&ecial !a'" is a "s&ecial !a'" as &rovi!e! b' t$e
#!ministrative Co!e o( 1887. 8 On t$e ot$er $an! t$e term
"general elections" means in t$e conte4t o( )M elections
t$e reg%lar elections (or members o( t$e )M as
!isting%is$e! (rom t$e s&ecial elections (or s%c$ o((icers. 8
Moreover t$e (act t$at onl' t$ose bet,een 1C an! /1 ta+e
&art in t$e election (or members o( t$e )M !oes not ma+e
s%c$ election an' less a reg%lar local election. 2$e
Constit%tion &rovi!es (or e4am&le (or t$e sectoral
re&resentatives in t$e Ho%se o( -e&resentatives o( among
ot$ers ,omen an! 'o%t$. 15 Onl' voters belonging to t$e
relevant sectors can ta+e &art in t$e election o( t$eir
re&resentatives. :et it cannot be !enie! t$at s%c$ election is
a reg%lar national election an! t$e !a' set (or its $ol!ing a
$oli!a'.
2$ir!. *n!ee! t$e CB# &rovision in .%estion merel'
reiterates t$e &rovision on &ai! $oli!a's. 6$et$er in t$e
conte4t o( t$e CB# or t$e Labor Co!e December 0 188/
,as a $oli!a' (or ,$ic$ $oli!a' &a' s$o%l! be &ai! b'
res&on!ent em&lo'er.

Mercao v. Boar o! %lection (upervisors
Facts: 7ose M. Merca!o ,as &roclaime! ,inner in t$e 0 December
188/ election (or c$airman o( t$e )M o( Baranga' Mabalor *baan
Batangas. 2$e &roclamation ,as ma!e b' t$e Boar! o( 3lection
2ellers ;B32< acting as t$e Boar! o( Canvassers on t$e basis o( its
tall' ,$ic$ s$o,e! Merca!o ,inning b' one vote over $is rival
&rivate res&on!ent Crisanto =. =angilinan. Merca!oH s victor' ,as
$o,ever s$ortDlive!. *mme!iatel' a(ter Merca!oHs &roclamation as
t$e ,inner b' t$e B32 =angilinan (ile! a (ormal &rotest .%estioning
t$e res%lts o( t$e election. He allege! t$at t$e B32 C$airman
!rin+ing gin an! Co+e !%ring t$e co%nting $a! invali!ate! some
votes ,it$o%t cons%lting t$e ot$er boar! members. 2$e B3)
or!ere! .t$e reo&ening o( t$e ballot bo4 an! t$e reco%nt o( t$e
votes (or )M C$airman. 2$e reco%nt reverse! t$e earlier tall' to C1
to 08 in (avor o( =angilinan ,$o ,as t$ere%&on &roclaime! t$e
!%l' electe! )M C$airman b' t$e B3) ,$ic$ iss%e! (or t$at &%r&ose
its o,n Certi(icate o( Canvass an! =roclamation. Merca!o t$en (ile!
,it$ t$e -egional 2rial Co%rt ;-2C< o( Batangas Cit' a &etition (or
certiorari an! man!am%s &ra'ing (or t$e ann%lment o( =angilinanHs
&roclamation b' t$e B3) an! (or t$e iss%ance o( an or!er to
com&el t$e De&artment o( *nterior an! Local Government ;D*LG< to
recogniBe $im as t$e !%l' electe! )M C$airman o( Baranga'
Mabalor an! to allo, $im to ta+e $is oat$ o( o((ice an! !isc$arge
$is !%ties as s%c$. *n $is &etition !oc+ete! as Civil Case No. 1CGC
Merca!o assaile! t$e 9%ris!iction o( t$e B3) to act on t$e &rotest
(ile! b' =angilinan as t$e gro%n! cite! t$erein ,as allege!l' in t$e
nat%re o( an election &rotest &ro&erl' cogniBable b' t$e
Metro&olitan or M%nici&al 2rial Co%rt in accor!ance ,it$ )ection
/C/ o( t$e Omnib%s 3lection Co!e. He (%rt$er claime! t$at
ass%ming t$at t$e B3) $as 9%ris!iction over t$e &rotest t$e
gro%n!s raise! t$erein ,ere !eeme! ,aive! b' =angilinanHs (ail%re
to invo+e t$em at t$e level o( t$e B32 an! t$at t$e B3) acte! ,it$
grave ab%se o( !iscretion amo%nting to lac+ or e4cess o(
9%ris!iction in !en'ing t$e &etitioner o( !%e &rocess ,$en it or!ere!
t$e reo&ening o( t$e ballot bo4 an! t$e reco%nting o( t$e votes
,it$o%t a((or!ing $im t$e o&&ort%nit' to be $ear!.
*n its Or!er !ate! 11 7an%ar' 1881 t$e -2C !ismisse! t$e &etition
(or lac+ o( 9%ris!iction 2$e trial co%rt state! t$at it ,as not a,are
o( an' la, b' ,$ic$ it co%l! act on t$e matters raise! in Merca!oHs
&etition since -esol%tion No. /088 o( t$e COM3L3C !i! not vest in
t$e -2C 9%ris!iction over controversies a((ecting )angg%niang
Mabataan electionsA constit%ting instea! t$e B3) ,$ic$ is %n!er
COM3L3C 9%ris!iction as t$e (inal arbiter o( all election
controversies ,it$in its level. Merca!o move! (or a reconsi!eration
o( t$e !ismissal or!er. He arg%e! t$at t$e -2C ,as com&etent to
act on $is &etition beca%se ;a< one mo!e o( see+ing 9%!icial revie,
115
is t$ro%g$ t$e ,rit o( certiorari ,$ic$ ma' be iss%e! b' t$e -2C
%n!er B.=. Blg. 1/8A;b< %n!er its -esol%tions Nos. /088 an! /C/5
t$e COM3L3C ,as to &rovi!e onl' tec$nical assistance in t$e
con!%ct o( t$e )M election an! t$ere(ore co%l! not grant an' relie(
(rom t$e action o( t$e B3)A moreover %n!er sai! -esol%tion No.
/088 no a&&eal to a $ig$er a!ministrative level ,as$ allo,e! (rom
t$e action o( t$e B3) an! ;c< t$e &rinci&le o( e4$a%stion o(
a!ministrative reme!ies !i! not a&&l' to t$e case at bar t$e
9%ris!ictional an! !%e &rocess iss%es raise! t$erein being legal in
nat%re. @nconvince! t$e -2C in its Or!er !ate! / Marc$ 1881
!enie! t$e motion (or reconsi!eration (or lac+ o( merit. *t r%le! t$at
t$e reo&ening o( t$e ballot bo4 (or Baranga' Mabalor an! t$e
reco%nting o( t$e votes cast t$erein ,ere &er(ectl' ,it$in t$e ambit
o( t$e B3)Hs a%t$orit' an! t$at Merca!o s$o%l! $ave gone to t$e
D*LG ,$ic$ $as !irect control an! s%&ervision o( t$e )M elections.
*ss%e: 6ON t$e B3) ma' ta+e cogniBance o( =angilinan>s &rotest
)M $istor': t$e )M ,as initiall' organiBe! b' =.D. No. G80 ;1C
#&ril 187C< as t$e Mabataang Baranga' ;MB< a 'o%t$
organiBation com&ose! o( all baranga' resi!ents ,$o ,ere
less t$an 18 'ears o( age ,$ic$ aims to &rovi!e its members
,it$ t$e o&&ort%nit' to e4&ress t$eir vie,s an! o&inions on
iss%es o( transcen!ental im&ortance. *ts a((airs ,ere
a!ministere! b' a baranga' 'o%t$ c$airman toget$er ,it$
si4 baranga' 'o%t$ lea!ers ,$o s$o%l! at least be 1C 'ears
o( age or over b%t less t$an 18 2$e t$en )ecretar' o( Local
Government an! Comm%nit' Develo&ment ,as a%t$oriBe!
to &rom%lgate t$e im&lementing r%les an! reg%lations.
=%rs%ant to =.D. No. 1181 ;1 )e&tember 1877< t$e
=ambansang Mati&%nan ng Mabataang Baranga' ng =ili&inas
,as constit%te! as "a bo!' cor&orate" ,it$ "t$e &o,ers an!
attrib%tes o( a cor&oration" an! &lace! !irectl' %n!er t$e
O((ice o( t$e =resi!ent. *ts a((airs ,ere to be a!ministere!
b' t$e 34ec%tive Committee ,$ic$ ,as em&o,ere! to
&rom%lgate r%les an! reg%lations governing t$e MB. 2$is
'o%t$ organiBation ,as recogniBe! in B.=. Blg. 117 ;2$e
LGC< / ,$ic$ raise! t$e ma4im%m age re.%irement o( t$e
members (rom 18 to /1. @n!er -.#. No. 71G5 ;2$e LGC< t$e
Mabataang Baranga' ,as c$ange! to t$e )angg%niang
Mabataan. 1 *t remains as a 'o%t$ organiBation in ever'
baranga' com&ose! o( a c$airman an! seven members to
be electe! b' t$e +ati&%nan ng +abataan an! t$e secretar'
an! t$e treas%rer to be a&&ointe! b' t$e )M c$airman ,it$
t$e conc%rrence o( t$e )M. 0 2$e +ati&%nan ng +abataan is
com&ose! o( all citiBens o( t$e =$ili&&ines act%all' resi!ing
in t$e baranga' (or at least si4 mont$s ,$o are 1C b%t not
more t$an /1 an! ,$o are !%l' registere! in t$e list o( t$e
)M or in t$e o((icial baranga' list in t$e c%sto!' o( t$e
baranga' secretar'. 2$e c$airman %&on ass%m&tion o(
o((ice s$all a%tomaticall' become an e4Do((icio member o(
t$e sangg%niang baranga'
@n!er s%b&aragra&$ ;C< &aragra&$ ;e< #rticle /51 -%le
JJK** o( t$e -%les an! -eg%lations *m&lementing t$e LGC 7
t$e con!%ct an! a!ministration o( t$e elections (or
sangg%niang +abataan members s$all be governe! b' t$e
r%les &rom%lgate! b' t$e COM3L3C.=%rs%ant to s%c$
a%t$orit' an! (or &%r&oses o( t$e )M election a%t$oriBe!
%n!er )ection C1/ o( -.#. No. 71G5 t$e COM3L3C
&rom%lgate! -esol%tion No. /088 ,$ic$ closel' (ollo,e! t$e
&attern set in t$e Constit%tion o( t$e Mabataang Baranga'
&rovi!ing (or a Boar! o( 3lection )%&ervisors an! Boar! o(
3lection 2ellers ,it$ t$e (ormer $aving !irect general
s%&ervision in t$e con!%ct o( s%c$ election an! as t$e (inal
arbiter o( all election &rotests. #rticle K o( -esol%tion No.
/088 e4&ressl' &rovi!es: 2$ere s$all be create! aboar! o(
election s%&ervisors ;B3)< in ever' cit' or m%nici&alit'
com&ose! o( t$e (ollo,ing: a< cit'?m%nici&al local
government o&erations o((icer as c$airmanA b<
cit'?m%nici&al election o((icer as memberA an! c<
cit'?m%nici&al secretar' as member. 2$e boar! s$all $ave
!irect general s%&ervision in t$e con!%ct o( elections (or
sangg%niang +abataan in t$e baranga' an! s$all act as (inal
arbiter in t$e resol%tion o( all election &rotests. No &reD
&roclamation cases s$all be allo,e! on matters relating to
t$e election o( sangg%niang +abataan c$airman an!
members.
2$e &etitioner conten!s t$at COM3L3C -esol%tion No. /088
is illegal an! %nconstit%tional beca%se it ma+es t$e B3) t$e
(inal arbiter o( election contests involving t$e )M in
contravention o( )ection /C/ o( t$e Omnib%s 3lection Co!e
,$ic$ vests in t$e &ro&er metro&olitan or m%nici&al trial
co%rt original 9%ris!iction over s%c$ contests an! on a more
(%n!amental gro%n! in contravention o( )ection / #rticle
*JDC o( t$e Constit%tion ,$ic$ lo!ges on. s%c$ co%rts
111
e4cl%sive original 9%ris!iction over contests involving
elective baranga' o((icials.
2$is contention is ,it$o%t merit (or it ass%mes t$at t$e )M
election is an election involving elective baranga' o((icials
,it$in t$e &%rvie, o( t$e a(oresai! stat%tor' an!
constit%tional &rovisions.
)ection /C/ o( t$e Omnib%s 3lection Co!e an! t$at &ortion
o( &aragra&$ ;/< )ection / #rticle *JDC o( t$e Constit%tion
on t$e COM3L3CHs e4cl%sive a&&ellate 9%ris!iction over
contests involving elective baranga' o((icials re(er to t$e
elective baranga' o((icials %n!er t$e &ertinent la,s in (orce
at t$e time t$e Omnib%s 3lection Co!e ,as enacte! an!
%&on t$e rati(ication o( t$e Constit%tion. 2$at la, ,as B.=.
Blg. 117 ot$er,ise +no,n as t$e LGC an! t$e elective
baranga' o((icials re(erre! to ,ere t$e &%nong baranga'
an! t$e si4 sangg%niang ba'an members. 8 2$e' ,ere to be
electe! b' t$ose .%ali(ie! to e4ercise t$e rig$t o( s%((rage.
15 2$e' are also t$e same o((icers re(erre! to b' t$e
&rovisions o( t$e Omnib%s 3lection Co!e o( t$e =$ili&&ines
on election o( baranga' o((icials. Metro&olitan an! m%nici&al
trial co%rts $a! e4cl%sive original 2$e 9%ris!iction over
contests relating to t$eir election . 2$e !ecisions o( t$ese
co%rts ,ere a&&ealable to t$e -egional 2rial Co%rts.
2$e Co%rt recogniBes t$e conse.%ences o( t$e .%asiD9%!icial
acts &er(orme! b' t$e B3) &%rs%ant to )ection /0 o(
COM3L3C -esol%tion No. /088 %n!er t$e o&erative (act
!octrineA t$%s ,e $ol! t$at t$e -egional 2rial Co%rt is
com&etent to revie, t$e !ecision o( t$e B3) in election
controversies ,it$in its level. #s correctl' state! b' t$e
&etitioner it is a basic &rinci&le in a!ministrative la, t$at
t$e absence o( a &rovision (or t$e revie, o( an
a!ministrative action !oes not &recl%!e reco%rse to t$e
co%rts.
*t is generall' %n!erstoo! t$at as to a!ministrative agencies
e4ercising .%asiD9%!icial or legislative &o,er t$ere is an
%n!erl'ing &o,er in t$e co%rts to scr%tiniBe t$e acts o( s%c$
agencies on .%estions o( la, an! 9%ris!iction even t$o%g$
no rig$t o( revie, is given b' stat%te. 2$e &%r&ose o( 9%!icial
revie, is to +ee& t$e a!ministrative agenc' ,it$in its
9%ris!iction an! &rotect s%bstantial rig$ts o( &arties a((ecte!
b' its !ecisions. it is &art o( t$e s'stem o( c$ec+s an!
balances ,$ic$ restricts t$e se&aration o( &o,ers an!
(orestalls arbitrar' an! %n9%st a!9%!ications.
Garvia v. (ales
Facts: =etitioner a&&lie! (or members$i& in t$e Mati&%nan ng
Mabataan b%t ,as !enie! s%c$ as s$e ,as alrea!' /1 'ears an! 15
mont$s ol!. )$e (ile! a "=etition (or *ncl%sion as -egistere!
Mabataang Member an! Koter" ,it$ t$e M%nici&al Circ%it 2rial
Co%rt Bang%iD=ag%!&%!D#!amsDDamalneg *locos Norte. 2$e co%rt
(o%n! $er .%ali(ie!. 2$e Boar! o( 3lection 2ellers a&&eale! b%t t$e
-2C 9%!ge in$ibite! $imsel( b' reason o( $is close relation ,it$ $er.
=etitioner (ile! $er certi(icate o( can!i!ac' (or t$e &osition o(
C$airman )angg%niang Mabataan. 3lection O((icer Dionisio F. -ios
&er a!vice o( =rovincial 3lection )%&ervisor Noli =i&o !isa&&rove!
&etitionerHs certi(icate o( can!i!ac' again !%e to $er age.
=etitioner $o,ever a&&eale! to COM3L3C -egional Director
Filemon #. #s&erin ,$o set asi!e t$e or!er o( res&on!ents an!
allo,e! &etitioner to r%n. -ios iss%e! a memoran!%m to &etitioner
in(orming $er o( $er ineligibilit' an! giving $er /0 $o%rs to e4&lain
,$' $er certi(icate o( can!i!ac' s$o%l! not be !isa&&rove!. 3arlier
an! ,it$o%t t$e +no,le!ge o( t$e COM3L3C o((icials &rivate
res&on!ent Florencio G. )ales 7r. a rival can!i!ate (or C$airman o(
t$e )angg%niang Mabataan (ile! ,it$ t$e COM3L3C en banc a
"=etition o( Denial an!?or Cancellation o( Certi(icate o( Can!i!ac'"
against &etitioner Garvi!a (or (alsel' re&resenting $er age
.%ali(ication in $er certi(icate o( can!i!ac'. 2$at same !a' -ios
iss%e! t$e memoran!%m to &etitioner t$e COM3L3C en banc
iss%e! an or!er !irecting t$e Boar! o( 3lection 2ellers an! Boar! o(
Canvassers o( Baranga' )an LorenBo to s%s&en! t$e &roclamation
o( &etitioner in t$e event s$e ,on in t$e election. =etitioner ,on. *n
accor!ance ,it$ t$e Ma' / 188G or!er o( t$e COM3L3C en banc
t$e Boar! o( 3lection 2ellers !i! not &roclaim &etitioner as t$e
,inner. Hence t$e instant &etition (or certiorari ,as (ile! on Ma'
/7 188G. On 7%ne / 188G $o,ever t$e Boar! o( 3lection 2ellers
&roclaime! &etitioner t$e ,inner (or t$e &osition o( )M c$airman
Baranga' )an LorenBo Bang%i *locos Norte. 2$e &roclamation ,as
",it$o%t &re9%!ice to an' (%rt$er action b' t$e Commission on
3lections or an' ot$er intereste! &art'." On 7%l' C 188G &etitioner
ran in t$e =amba'ang =e!eras'on ng mga )angg%niang Mabataan
(or t$e m%nici&alit' o( Bang%i *locos Norte. )$e ,on as #%!itor an!
,as &roclaime! one o( t$e electe! o((icials o( t$e =e!eras'on.
11/
*ss%e: 6ON t$e cancellation o( $er certi(icate o( can!i!ac' on t$e
gro%n! t$at s$e $as e4cee!e! t$e age re.%irement to r%n as an
elective o((icial o( t$e )M is vali!. :3).
2$e Mati&%nan ng Mabataan ,as originall' create! b' =D
G80 in 187C as t$e Mabataang Baranga' a baranga' 'o%t$
organiBation com&ose! o( all resi!ents o( t$e baranga' ,$o
,ere at least 1C 'ears b%t less t$an 18 'ears o( age. 2$e
Mabataang Baranga' so%g$t to &rovi!e its members a
me!i%m to e4&ress t$eir vie,s an! o&inions an! &artici&ate
in iss%es o( transcen!ental im&ortance. *ts a((airs ,ere
a!ministere! b' a baranga' 'o%t$ c$airman toget$er ,it$
si4 baranga' 'o%t$ lea!ers ,$o ,ere act%al resi!ents o( t$e
baranga' an! ,ere at least 1C 'ears b%t less t$an 18 'ears
o( age. *n 1881 Batas =ambansa Blg. 117 t$en t$e LGC
raise! t$e ma4im%m age o( t$e Mabataang Baranga'
members (rom "less t$an 18 'ears o( age" to "not more t$an
/1 'ears o( age." 2$e LGC c$ange! t$e Mabataang Baranga'
into t$e Mati&%nan ng Mabataan. *t $o,ever retaine! t$e
age limit o( t$e members lai! !o,n in B.=. 117 at 1C b%t not
more t$an /1 'ears ol!. 2$e a((airs o( t$e Mati&%nan ng
Mabataan are a!ministere! b' t$e )angg%niang Mabataan
;)M< com&ose! o( a c$airman an! seven ;7< members ,$o
are electe! b' t$e Mati&%nan ng Mabataan.
Members$i& in t$e Mati&%nan ng Mabataan is s%b9ect to
s&eci(ic .%ali(ications lai! !o,n b' t$e LGC: ;a< a Fili&ino
citiBenA ;b< an act%al resi!ent o( t$e baranga' (or at least
si4 mont$sA ;c< 1C b%t not more t$an /1 'ears o( ageA an!
;!< !%l' registere! in t$e list o( t$e )angg%niang Mabataan
or in t$e o((icial baranga' list. )ection 0/8 o( t$e Co!e
re.%ires t$at an elective o((icial o( t$e )angg%niang
Mabataan m%st be: ;a< a Fili&ino citiBenA ;b< a .%ali(ie!
voter in t$e Mati&%nan ng MabataanA ;c< a resi!ent o( t$e
baranga' at least one ;1< 'ear imme!iatel' &rece!ing t$e
electionA ;!< at least 1C 'ears b%t not more t$an /1 'ears
o( age on t$e !a' o( $is electionA ;e< able to rea! an! ,riteA
an! ;(< m%st not $ave been convicte! o( an' crime
involving moral t%r&it%!e.
# member o( t$e Mati&%nan ng Mabataan ma' be a .%ali(ie!
voter in t$e Ma' G 188G )M elections i( $e is: ;a< a Fili&ino
citiBenA ;b< 1C b%t not more t$an /1 'ears o( age on
election !a' i.e. t$e voter m%st be born bet,een Ma' G
187C an! Ma' G 1881 incl%siveA an! ;c< a resi!ent o( t$e
=$ili&&ines (or at least one ;1< 'ear an! an act%al resi!ent o(
t$e baranga' at least si4 ;G< mont$s imme!iatel' &rece!ing
t$e elections. # can!i!ate (or t$e )M m%st: ;a< &ossess t$e
(oregoing .%ali(ications o( a voterA ;b< be a resi!ent in t$e
baranga' at least one ;1< 'ear imme!iatel' &rece!ing t$e
electionsA an! ;c< able to rea! an! ,rite.
34ce&t (or t$e .%estion o( age &etitioner $as all t$e
.%ali(ications o( a member an! voter in t$e Mati&%nan ng
Mabataan an! a can!i!ate (or t$e )angg%niang Mabataan.
=etitionerHs age is a!mitte!l' be'on! t$e limit set in )ection
1 UbV o( COM3L3C -esol%tion No. /8/0. =etitioner $o,ever
arg%es t$at )ection 1 UbV o( -esol%tion No. /8/0 is %nla,(%l
%ltra vires an! be'on! t$e sco&e o( )ections 0/0 an! 0/8 o(
t$e LGC. )$e conten!s t$at t$e Co!e itsel( !oes not &rovi!e
t$at t$e voter m%st be e4actl' /1 'ears o( age on election
!a'. )$e %rges t$at so long as s$e !i! not t%rn t,ent'Dt,o
;//< 'ears ol! s$e ,as still t,ent'Done 'ears o( age on
election !a' an! t$ere(ore .%ali(ie! as a member an! voter
in t$e Mati&%nan ng Mabataan an! as can!i!ate (or t$e )M
elections.
# closer loo+ at t$e LGC ,ill reveal a !istinction bet,een t$e
ma4im%m age o( a member in t$e Mati&%nan ng Mabataan
an! t$e ma4im%m age o( an elective )M o((icial. )ection
0/0 o( t$e Co!e sets a memberHs ma4im%m age at /1 'ears
onl'. 2$ere is no (%rt$er &rovision as to ,$en t$e member
s$all $ave t%rne! /1 'ears o( age. On t$e ot$er $an!
)ection 0/8 &rovi!es t$at t$e ma4im%m age o( an elective
)M o((icial is /1 'ears ol! "on t$e !a' o( $is election." 2$e
a!!ition o( t$e &$rase "on t$e !a' o( $is election" is an
a!!itional .%ali(ication. 2$e member ma' be more t$an /1
'ears o( age on election !a' or on t$e !a' $e registers as
member o( t$e Mati&%nan ng Mabataan. 2$e elective o((icial
$o,ever m%st not be more t$an /1 'ears ol! on t$e !a' o(
election. 2$e !istinction is %n!erstan!able consi!ering t$at
t$e Co!e itsel( &rovi!es more .%ali(ications (or an elective
)M o((icial t$an (or a member o( t$e Mati&%nan ng Mabataan.
Dissimil%m !issimilis est ratio. 2$e co%rts ma' !isting%is$
,$en t$ere are (acts an! circ%mstances s$o,ing t$at t$e
legislat%re inten!e! a !istinction or .%ali(ication.
2$e .%ali(ication t$at a voter in t$e )M elections m%st not be
more t$an /1 'ears o( age on t$e !a' o( t$e election is not
111
&rovi!e! in )ection 0/0 o( t$e LGC. *n (act t$e term
".%ali(ie! voter" a&&ears onl' in COM3L3C -esol%tion No.
/8/0. )ince a ".%ali(ie! voter" is not necessaril' an elective
o((icial t$en it ma' be ass%me! t$at a ".%ali(ie! voter" is a
"member o( t$e Mati&%nan ng Mabataan." )ection 0/0 o( t$e
Co!e !oes not &rovi!e t$at t$e ma4im%m age o( a member
o( t$e Mati&%nan ng Mabataan is !etermine! on t$e !a' o(
t$e election. )ection 1 UbV o( COM3L3C -esol%tion No.
/8/0 is t$ere(ore %ltra vires inso(ar as it sets t$e age limit
o( a voter (or t$e )M elections at e4actl' /1 'ears on t$e
!a' o( t$e election.
2$e &rovision t$at an elective o((icial o( t$e )M s$o%l! not be
more t$an /1 'ears o( age on t$e !a' o( $is election is ver'
clear. 2$e LGC s&ea+s o( 'ears not mont$s nor !a's.
6$en t$e la, s&ea+s o( 'ears it is %n!erstoo! t$at 'ears
are o( 1GC !a's eac$. One born on t$e (irst !a' o( t$e 'ear
is conse.%entl' !eeme! to be one 'ear ol! on t$e 1GCt$
!a' a(ter $is birt$ DD t$e last !a' o( t$e 'ear. *n com&%ting
'ears t$e (irst 'ear is reac$e! a(ter com&leting t$e (irst 1GC
!a's. #(ter t$e (irst 1GCt$ !a' t$e (irst !a' o( t$e secon!
1GCD!a' c'cle begins. On t$e 1GCt$ !a' o( t$e secon!
c'cle t$e &erson t%rns t,o 'ears ol!. 2$is c'cle goes on
an! on in a li(etime. # &erson t%rns /1 'ears ol! on t$e
1GCt$ !a' o( $is /1st 1GCD!a' c'cle. 2$is means on $is /1st
birt$!a' $e $as com&lete! t$e entire s&an o( /1 1GCD!a'
c'cles. #(ter t$is birt$!a' t$e 1GCD!a' c'cle (or $is //n!
'ear begins. 2$e !a' a(ter t$e 1GCt$ !a' is t$e (irst !a' o(
t$e ne4t 1GCD!a' c'cle an! $e t%rns // 'ears ol! on t$e
1GCt$ !a'.
2$e &$rase "not more t$an /1 'ears o( age" means not over
/1 'ears not be'on! /1 'ears. *t means /1 1GCD!a' c'cles.
*t !oes not mean /1 'ears an! one or some !a's or a
(raction o( a 'ear beca%se t$at ,o%l! be more t$an /1 1GCD
!a' c'cles. "Not more t$an /1 'ears ol!" is not e.%ivalent
to "less t$an // 'ears ol!" contrar' to &etitionerHs claims.
2$e la, !oes not state t$at t$e can!i!ate be less t$an //
'ears on election !a'.
*n =.D. G80 t$e la, t$at create! t$e Mabataang Baranga'
t$e age .%ali(ication o( a baranga' 'o%t$ o((icial ,as
e4&ressl' state! as "at least (i(teen 'ears o( age or over b%t
less t$an eig$teen." 2$is &rovision clearl' states t$at t$e
'o%t$ o((icial m%st be at least 1C 'ears ol! an! ma' be 17
'ears an! a (raction o( a 'ear b%t s$o%l! not reac$ t$e age
o( eig$teen 'ears. 6$en t$e LGC increase! t$e age limit o(
members o( t$e 'o%t$ organiBation to /1 'ears it !i! not
reenact t$e &rovision in s%c$ a ,a' as to ma+e t$e 'o%t$
"at least 1C b%t less t$an // 'ears ol!." *( t$e intention o(
t$e Co!eHs (ramers ,as to incl%!e citiBens less t$an //
'ears ol! t$e' s$o%l! $ave state! so e4&ressl' instea! o(
leaving t$e matter o&en to con(%sion an! !o%bt.
2$e general r%le is t$at an elective o((icial o( t$e
)angg%niang Mabataan m%st not be more t$an /1 'ears o(
age on t$e !a' o( $is election. 2$e onl' e4ce&tion is ,$en
t$e o((icial reac$es t$e age o( /1 'ears !%ring $is
inc%mbenc'. )ection 0/1 UbV o( t$e Co!e allo,s $im to
serve t$e remaining &ortion o( t$e term (or ,$ic$ $e ,as
electe!. #ccor!ing to )enator =imentel t$e 'o%t$ lea!er
m%st $ave "been electe! &rior to $is /1st birt$!a'."
Conversel' t$e )M o((icial m%st not $ave t%rne! /1 'ears
ol! be(ore $is election. -ea!ing )ection 0/1 UbV toget$er
,it$ )ection 0/8 o( t$e Co!e t$e latest !ate at ,$ic$ an )M
elective o((icial t%rns /1 'ears ol! is on t$e !a' o( $is
election. 2$e ma4im%m age o( a 'o%t$ o((icial m%st
t$ere(ore be e4actl' /1 'ears on election !a'. )ection 1 UbV
in relation to )ection G UaV o( COM3L3C -esol%tion No. /8/0
is not %ltra vires inso(ar as it (i4es t$e ma4im%m age o( an
elective )M o((icial on t$e !a' o( $is election.
*n t$e case at bar &etitioner ,as born on 7%ne 11 1870. On
Marc$ 1G 188G t$e !a' s$e registere! as voter (or t$e Ma'
G 188G )M elections &etitioner ,as t,ent'Done ;/1< 'ears
an! nine ;8< mont$s ol!. On t$e !a' o( t$e elections s$e
,as /1 'ears 11 mont$s an! C !a's ol!. 6$en s$e
ass%me! o((ice on 7%ne 1 188G s$e ,as /1 'ears 11
mont$s an! /5 !a's ol! an! ,as merel' ten ;15< !a's a,a'
(rom t%rning // 'ears ol!. =etitioner ma' $ave .%ali(ie! as
a member o( t$e Mati&%nan ng Mabataan b%t !e(initel'
&etitioner ,as over t$e age limit (or elective )M o((icials set
b' )ection 0/8 o( t$e LGC an! )ections 1 UbV an! G o(
Comelec -esol%tion No. /8/0. )$e ,as ineligible to r%n as
can!i!ate (or t$e Ma' G 188G )angg%niang Mabataan
elections.
2$e re.%irement t$at a can!i!ate &ossess t$e age
.%ali(ication is (o%n!e! on &%blic &olic' an! i( $e lac+s t$e
age on t$e !a' o( t$e election $e can be !eclare! ineligible.
110
*n t$e same vein i( t$e can!i!ate is over t$e ma4im%m age
limit on t$e !a' o( t$e election $e is ineligible. 2$e (act
t$at t$e can!i!ate ,as electe! ,ill not ma+e t$e age
re.%irement !irector' nor ,ill it vali!ate $is election. 2$e
,ill o( t$e &eo&le as e4&resse! t$ro%g$ t$e ballot cannot
c%re t$e vice o( ineligibilit'.
2$e ineligibilit' o( &etitioner !oes not entitle &rivate
res&on!ent t$e can!i!ate ,$o obtaine! t$e $ig$est n%mber
o( votes in t$e Ma' G 188G elections to be !eclare!
electe!. # !e(eate! can!i!ate cannot be !eeme! electe! to
t$e o((ice. Moreover !es&ite $is claims &rivate res&on!ent
$as (aile! to &rove t$at t$e electorate t$emselves act%all'
+ne, o( &etitionerHs ineligibilit' an! t$at t$e' malicio%sl'
vote! (or $er ,it$ t$e intention o( misa&&l'ing t$eir
(ranc$ises an! t$ro,ing a,a' t$eir votes (or t$e bene(it o(
$er rival can!i!ate.
Neit$er can t$is Co%rt or!er t$at &%rs%ant to )ection 01C o(
t$e LGC &etitioner s$o%l! be s%ccee!e! b' t$e )angg%niang
Mabataan member ,$o obtaine! t$e ne4t $ig$est n%mber o(
votes in t$e Ma' G 188G elections. )ection 01C a&&lies
,$en a )angg%niang Mabataan C$airman "re(%ses to
ass%me o((ice (ails to .%ali(' is convicte! o( a (elon'
vol%ntaril' resigns !ies is &ermanentl' inca&acitate! is
remove! (rom o((ice or $as been absent ,it$o%t leave (or
more t$an t$ree ;1< consec%tive mont$s."
2$e .%estion o( t$e age .%ali(ication is a .%estion o(
eligibilit'. Being "eligible" means being "legall' .%ali(ie!A
ca&able o( being legall' c$osen." *neligibilit' on t$e ot$er
$an! re(ers to t$e lac+ o( t$e .%ali(ications &rescribe! in
t$e Constit%tion or t$e stat%tes (or $ol!ing &%blic o((ice.
*neligibilit' is not one o( t$e gro%n!s en%merate! in )ection
01C (or s%ccession o( t$e )M C$airman.
2o avoi! a $iat%s in t$e o((ice o( )M C$airman t$e Co%rt
!eems it necessar' to or!er t$at t$e vacanc' be (ille! b'
t$e )M member c$osen b' t$e inc%mbent )M members o(
Baranga' )an LorenBo Bang%i *locos Norte b' sim&le
ma9orit' (rom among t$emselves. 2$e member c$osen s$all
ass%me t$e o((ice o( )M C$airman (or t$e %ne4&ire! &ortion
o( t$e term an! s$all !isc$arge t$e &o,ers an! !%ties an!
en9o' t$e rig$ts an! &rivileges a&&%rtenant to sai! o((ice.
Montesclaros v. COM%L%C
Facts: On Febr%ar' 18 /55/ &etitioner #ntoniette K.C.
Montesclaros sent a letter to t$e Comelec !eman!ing t$at t$e )M
elections be $el! as sc$e!%le! on Ma' G /55/. Montesclaros also
%rge! t$e Comelec to res&on! to $er letter ,it$in 15 !a's %&on
recei&t o( t$e letter ot$er,ise s$e ,ill see+ 9%!icial relie(. On
Febr%ar' /5 /55/ #l(re!o L. Beni&a'o t$en Comelec C$airman
,rote i!entical letters to t$e )&ea+er o( t$e Ho%se an! t$e )enate
=resi!ent abo%t t$e stat%s o( &en!ing bills on t$e )M an! Baranga'
elections. *n $is letters t$e Comelec C$airman intimate! t$at it
,as Eo&erationall' ver' !i((ic%ltF to $ol! bot$ elections
sim%ltaneo%sl' in Ma' /55/. *nstea! t$e Comelec C$airman
e4&resse! s%&&ort (or t$e bill o( )enator Fran+lin Drilon t$at
&ro&ose! to $ol! t$e Baranga' elections in Ma' /55/ an! &ost&one
t$e )M elections to November /55/. 2en !a's la&se! ,it$o%t t$e
Comelec res&on!ing to t$e letter o( Montesclaros. )%bse.%entl'
&etitioners receive! a co&' o( Comelec 3n Banc -esol%tion No.
07G1 !ate! Febr%ar' C /55/ recommen!ing to Congress t$e
&ost&onement o( t$e )M elections to November /55/ b%t $ol!ing
t$e Baranga' elections in Ma' /55/ as sc$e!%le!.
On Marc$ G /55/ t$e )enate an! t$e Ho%se o( -e&resentatives
&asse! t$eir res&ective bills &ost&oning t$e )M elections. On Marc$
11 /55/ t$e Bicameral Con(erence Committee ;EBicameral
CommitteeF (or brevit'< o( t$e )enate an! t$e Ho%se came o%t ,it$
a -e&ort recommen!ing a&&roval o( t$e reconcile! bill
consoli!ating )enate Bill No. /5C5 U10V an! Ho%se Bill No. 00CG.
U1CV 2$e Bicameral Committee>s consoli!ate! bill reset t$e )M an!
Baranga' elections to 7%l' 1C /55/ an! lo,ere! t$e members$i&
age in t$e )M to at least 1C b%t not more t$an 18 'ears o( age. On
Marc$ 11 /55/ &etitioners (ile! t$e instant &etition.
On Marc$ 11 /55/ t$e )enate a&&rove! t$e Bicameral
Committee>s consoli!ate! bill an! on Marc$ 11 /55/ t$e Ho%se o(
-e&resentatives a&&rove! t$e same. 2$e =resi!ent signe! t$e
a&&rove! bill into la, on Marc$ 18 /55/.
*ss%es:
1. 6ON t$ere e4ists a 9%sticiable controvers'. NO.
2$e Co%rt>s &o,er o( 9%!icial revie, ma' be e4ercise! in
constit%tional cases onl' i( all t$e (ollo,ing re.%isites are
com&lie! ,it$ namel': ;1< t$e e4istence o( an act%al an!
a&&ro&riate case or controvers'A ;/< a &ersonal an!
s%bstantial interest o( t$e &art' raising t$e constit%tional
.%estionA ;1< t$e e4ercise o( 9%!icial revie, is &lea!e! at t$e
11C
earliest o&&ort%nit'A an! ;0< t$e constit%tional .%estion is
t$e lis mota o( t$e case.
*n t$e instant case t$ere is no act%al controvers' re.%iring
t$e e4ercise o( t$e &o,er o( 9%!icial revie,. 6$ile see+ing
to &revent a &ost&onement o( t$e Ma' G /55/ )M elections
&etitioners are nevert$eless amenable to a resetting o( t$e
)M elections to an' !ate not later t$an 7%l' 1C /55/. -# No.
81G0 $as reset t$e )M elections to 7%l' 1C /55/ a !ate
acce&table to &etitioners. 6it$ res&ect to t$e !ate o( t$e )M
elections t$ere is t$ere(ore no act%al controvers' re.%iring
9%!icial intervention.
=etitioners> &ra'er to &revent Congress (rom enacting into
la, a &ro&ose! bill lo,ering t$e members$i& age in t$e )M
!oes not &resent an act%al 9%sticiable controvers'. #
&ro&ose! bill is not s%b9ect to 9%!icial revie, beca%se it is
not a la,. # &ro&ose! bill creates no rig$t an! im&oses no
!%t' legall' en(orceable b' t$e Co%rt. # &ro&ose! bill
$aving no legal e((ect violates no constit%tional rig$t or
!%t'. 2$e Co%rt $as no &o,er to !eclare a &ro&ose! bill
constit%tional or %nconstit%tional beca%se t$at ,o%l! be in
t$e nat%re o( ren!ering an a!visor' o&inion on a &ro&ose!
act o( Congress. 2$e &o,er o( 9%!icial revie, cannot be
e4ercise! in vac%o. 2$e secon! &aragra&$ o( )ection 1
#rticle K*** o( t$e Constit%tion states X E7%!icial &o,er
incl%!es t$e !%t' o( t$e co%rts o( 9%stice to settle act%al
controversies involving rig$ts ,$ic$ are legall' !eman!able
an! en(orceable an! to !etermine ,$et$er or not t$ere $as
been a grave ab%se o( !iscretion amo%nting to lac+ or
e4cess o( 9%ris!iction on t$e &art o( an' branc$ or
instr%mentalit' o( t$e Government.F
2$%s t$ere can be no 9%sticiable controvers' involving t$e
constit%tionalit' o( a &ro&ose! bill. 2$e Co%rt can e4ercise
its &o,er o( 9%!icial revie, onl' a(ter a la, is enacte! not
be(ore.
@n!er t$e se&aration o( &o,ers t$e Co%rt cannot restrain
Congress (rom &assing an' la, or (rom setting into motion
t$e legislative mill accor!ing to its internal r%les. 2$%s t$e
(ollo,ing acts o( Congress in t$e e4ercise o( its legislative
&o,ers are not s%b9ect to 9%!icial restraint: t$e (iling o( bills
b' members o( Congress t$e a&&roval o( bills b' eac$
c$amber o( Congress t$e reconciliation b' t$e Bicameral
Committee o( a&&rove! bills an! t$e event%al a&&roval into
la, o( t$e reconcile! bills b' eac$ c$amber o( Congress.
#bsent a clear violation o( s&eci(ic constit%tional limitations
or o( constit%tional rig$ts o( &rivate &arties t$e Co%rt
cannot e4ercise its &o,er o( 9%!icial revie, over t$e internal
&rocesses or &roce!%res o( Congress. 2$e Co%rt $as also no
&o,er to !ictate to Congress t$e ob9ect or s%b9ect o( bills
t$at Congress s$o%l! enact into la,. 2$e 9%!icial &o,er to
revie, t$e constit%tionalit' o( la,s !oes not incl%!e t$e
&o,er to &rescribe to Congress ,$at la,s to enact. 2$e
Co%rt $as no &o,er to com&el Congress b' man!am%s to
enact a la, allo,ing &etitioners regar!less o( t$eir age to
vote an! be vote! (or in t$e 7%l' 1C /55/ )M elections. 2o
!o so ,o%l! !estro' t$e !elicate s'stem o( c$ec+s an!
balances (inel' cra(te! b' t$e Constit%tion (or t$e t$ree coD
e.%al coor!inate an! in!e&en!ent branc$es o( government.
1. 6ON t$e &ost&onement o( t$e )M elections amo%nte! to a
grave ab%se o( !iscretion. NO.
-# No. 81G0 is no, t$e la, t$at &rescribes t$e
.%ali(ications o( can!i!ates an! voters (or t$e )M elections.
2$is la, also (i4es t$e !ate o( t$e )M elections. =etitioners
$ave not s$o,n t$at t$e Comelec acte! illegall' or ,it$
grave ab%se o( !iscretion in recommen!ing to Congress t$e
&ost&onement o( t$e )M elections. 2$e ver' evi!ence relie!
%&on b' &etitioners contra!ict t$eir allegation o( illegalit'.
2$e evi!ence consist o( t$e (ollo,ing: ;1< Comelec en banc
-esol%tion No. 07G1 !ate! Febr%ar' C /55/ t$at
recommen!e! t$e &ost&onement o( t$e )M elections to
/551A ;/< t$e letter o( t$en Comelec C$airman Beni&a'o
a!!resse! to t$e )&ea+er o( t$e Ho%se o( -e&resentatives
an! t$e =resi!ent o( t$e )enateA an! ;1< t$e Con(erence
Committee -e&ort consoli!ating )enate Bill No. /5C5 an!
Ho%se Bill No. 00CG.
2$e Comelec e4ercise! its &o,er an! !%t' to Een(orce an!
a!minister all la,s an! reg%lations relative to t$e con!%ct o(
an election &lebiscite initiative re(eren!%m an! recallF an!
to Erecommen! to Congress e((ective meas%res to minimiBe
election s&en!ing.F 2$e Comelec>s acts en9o' t$e
&res%m&tion o( reg%larit' in t$e &er(ormance o( o((icial
!%ties. 2$ese acts cannot constit%te &roo( as claime! b'
&etitioners t$at t$ere Ee4ists a connivance an! cons&irac'
;among< res&on!ents in contravention o( t$e &resent la,.F
11G
2$e 1887 Constit%tion im&oses %&on t$e Comelec t$e !%t'
o( en(orcing an! a!ministering all la,s an! reg%lations
relative to t$e con!%ct o( elections. =etitioners (aile! to
&rove t$at t$e Comelec committe! grave ab%se o(
!iscretion in recommen!ing to Congress t$e &ost&onement
o( t$e Ma' G /55/ )M elections. 2$e evi!ence cite! b'
&etitioners even establis$ t$at t$e Comelec $as
!emonstrate! an earnest e((ort to a!!ress t$e &ractical
&roblems in $ol!ing t$e )M elections on Ma' G /55/. 2$e
&res%m&tion remains t$at t$e !ecision o( t$e Comelec to
recommen! to Congress t$e &ost&onement o( t$e elections
,as ma!e in goo! (ait$ in t$e reg%lar co%rse o( its o((icial
!%ties.
Grave ab%se o( !iscretion is s%c$ ca&ricio%s an! ,$imsical
e4ercise o( 9%!gment t$at is &atent an! gross as to amo%nt
to an evasion o( a &ositive !%t' or a virt%al re(%sal to
&er(orm a !%t' en9oine! b' la,. =%blic res&on!ents $aving
acte! strictl' &%rs%ant to t$eir constit%tional &o,ers an!
!%ties ,e (in! no grave ab%se o( !iscretion in t$eir assaile!
acts.
1. 6ON t$e e4cl%sion o( &ersons 18D/1 (rom t$e )M ,as
%nconstit%tional. NO.
@n!er -# No. 81G0 Congress merel' restore! t$e age
re.%irement in =D No. G80 t$e original c$arter o( t$e )M
,$ic$ (i4e! t$e ma4im%m age (or members$i& in t$e )M to
'o%t$s less t$an 18 'ears ol!. =etitioners !o not $ave a
veste! rig$t to t$e &ermanence o( t$e age re.%irement
%n!er )ection 0/0 o( t$e LGC. 3ver' la, &asse! b'
Congress is al,a's s%b9ect to amen!ment or re&eal b'
Congress. 2$e Co%rt cannot restrain Congress (rom
amen!ing or re&ealing la,s (or t$e &o,er to ma+e la,s
incl%!es t$e &o,er to c$ange t$e la,s.
2$e Co%rt cannot also !irect t$e Comelec to allo, overDage!
voters to vote or be vote! (or in an election t$at is limite!
%n!er -# No. 81G0 to 'o%t$s at least 1C b%t less t$an 18
'ears ol!. # la, is nee!e! to allo, all t$ose ,$o $ave
t%rne! more t$an /1 'ears ol! on or a(ter Ma' G /55/ to
&artici&ate in t$e 7%l' 1C /55/ )M elections. :o%t$s (rom 18
to /1 'ears ol! as o( Ma' G /55/ are also no longer )M
members an! cannot &artici&ate in t$e 7%l' 1C /55/ )M
elections. Congress ,ill $ave to !eci!e ,$et$er to enact an
amen!ator' la,. =etitioners> reme!' is legislation not
9%!icial intervention.
=etitioners $ave no &ersonal an! s%bstantial interest in
maintaining t$is s%it. # &art' m%st s$o, t$at $e $as been
or is abo%t to be !enie! some &ersonal rig$t or &rivilege to
,$ic$ $e is la,(%ll' entitle!. # &art' m%st also s$o, t$at $e
$as a real interest in t$e s%it. B' Ereal interestF is meant a
&resent s%bstantial interest as !isting%is$e! (rom a mere
e4&ectanc' or (%t%re contingent s%bor!inate or
inconse.%ential interest.
*n t$e instant case &etitioners see+ to en(orce a rig$t
originall' con(erre! b' la, on t$ose ,$o ,ere at least 1C
b%t not more t$an /1 'ears ol!. No, ,it$ t$e &assage o(
-# No. 81G0 t$is rig$t is limite! to t$ose ,$o on t$e !ate o(
t$e )M elections are at least 1C b%t less t$an 18 'ears ol!.
2$e ne, la, restricts members$i& in t$e )M to t$is s&eci(ic
age gro%&. Not (alling ,it$in t$is classi(ication &etitioners
$ave cease! to be members o( t$e )M an! are no longer
.%ali(ie! to &artici&ate in t$e 7%l' 1C /55/ )M elections.
=lainl' &etitioners no longer $ave a &ersonal an!
s%bstantial interest in t$e )M elections.
2$is &etition !oes not raise an' constit%tional iss%e. #t t$e
time &etitioners (ile! t$is &etition -# No. 81G0 ,$ic$ reset
t$e )M elections an! re!%ce! t$e age re.%irement (or )M
members$i& ,as not 'et enacte! into la,. #(ter t$e
&assage o( -# No. 81G0 &etitioners (aile! to assail an'
&rovision in -# No. 81G0 t$at co%l! be %nconstit%tional. 2o
grant &etitioners> &ra'er to be allo,e! to vote an! be vote!
(or in t$e 7%l' 1C /55/ )M elections necessitates assailing
t$e constit%tionalit' o( -# No. 81G0. 2$is &etitioners $ave
not !one. 2$e Co%rt ,ill not stri+e !o,n a la, %nless its
constit%tionalit' is &ro&erl' raise! in an a&&ro&riate action
an! a!e.%atel' arg%e!.
1. 6ON )M members$i& is a &ro&ert' rig$t. NO.
Congress e4ercises t$e &o,er to &rescribe t$e .%ali(ications
(or )M members$i&. One ,$o is no longer .%ali(ie! beca%se
o( an amen!ment in t$e la, cannot com&lain o( being
!e&rive! o( a &ro&rietar' rig$t to )M members$i&. Onl'
t$ose ,$o .%ali(' as )M members can contest base! on a
stat%tor' rig$t an' act !is.%ali('ing t$em (rom )M
members$i& or (rom voting in t$e )M elections. )M
members$i& is not a &ro&ert' rig$t &rotecte! b' t$e
117
Constit%tion beca%se it is a mere stat%tor' rig$t con(erre!
b' la,. Congress ma' amen! at an' time t$e la, to c$ange
or even ,it$!ra, t$e stat%tor' rig$t.
# &%blic o((ice is not a &ro&ert' rig$t. #s t$e Constit%tion
e4&ressl' states a EU=V%blic o((ice is a &%blic tr%st.F No one
$as a veste! rig$t to an' &%blic o((ice m%c$ less a veste!
rig$t to an e4&ectanc' o( $ol!ing a &%blic o((ice. *n Corne9o
v. Gabriel !eci!e! in 18/5 t$e Co%rt alrea!' r%le!: F#gain
(or t$is &etition to come %n!er t$e !%e &rocess o( la,
&ro$ibition it ,o%l! be necessar' to consi!er an o((ice a
E&ro&ert'.F *t is $o,ever ,ell settle! t$at a &%blic o((ice is
not &ro&ert' ,it$in t$e sense o( t$e constit%tional
g%aranties o( !%e &rocess o( la, b%t is a &%blic tr%st or
agenc'. 2$e basic i!ea o( t$e government is t$at o( a
&o&%lar re&resentative government t$e o((icers being mere
agents an! not r%lers o( t$e &eo&le one ,$ere no one man
or set o( men $as a &ro&rietar' or contract%al rig$t to an
o((ice b%t ,$ere ever' o((icer acce&ts o((ice &%rs%ant to t$e
&rovisions o( t$e la, an! $ol!s t$e o((ice as a tr%st (or t$e
&eo&le $e re&resents.F
=etitioners ,$o a&&arentl' !esire to $ol! &%blic o((ice
s$o%l! realiBe (rom t$e ver' start t$at no one $as a
&ro&rietar' rig$t to &%blic o((ice. 6$ile t$e la, ma+es an )M
o((icer an e4Do((icio member o( a local government
legislative co%ncil t$e la, !oes not con(er on &etitioners a
&ro&rietar' rig$t or even a &ro&rietar' e4&ectanc' to sit in
local legislative co%ncils. 2$e constit%tional &rinci&le o( a
&%blic o((ice as a &%blic tr%st &recl%!es an' &ro&rietar'
claim to &%blic o((ice. 3ven t$e )tate &olic' !irecting
Ee.%al access to o&&ort%nities (or &%blic serviceF cannot
besto, on &etitioners a &ro&rietar' rig$t to )M members$i&
or a &ro&rietar' e4&ectanc' to e4Do((icio &%blic o((ices.
Moreover ,$ile t$e )tate &olic' is to enco%rage t$e 'o%t$>s
involvement in &%blic a((airs t$is &olic' re(ers to t$ose ,$o
belong to t$e class o( &eo&le !e(ine! as t$e 'o%t$.
Congress $as t$e &o,er to !e(ine ,$o are t$e 'o%t$
.%ali(ie! to 9oin t$e )M ,$ic$ itsel( is a creation o(
Congress. 2$ose ,$o !o not .%ali(' beca%se t$e' are &ast
t$e age gro%& !e(ine! as t$e 'o%t$ cannot insist on being
&art o( t$e 'o%t$. *n government service once an em&lo'ee
reac$es man!ator' retirement age $e cannot invo+e an'
&ro&ert' rig$t to cling to $is o((ice. *n t$e same manner
since &etitioners are no, &ast t$e ma4im%m age (or
members$i& in t$e )M t$e' cannot invo+e an' &ro&ert'
rig$t to cling to t$eir )M members$i&.
1. 6ON t$e &ost&onement o( t$e )M elections ,o%l! allo, t$e
inc%mbent )M o((icers to &er&et%ate t$emselves in &o,er
!e&riving ot$er 'o%t$s o( t$e o&&ort%nit' to serve in
elective )M &ositions. NO.
2$is arg%ment !eserves scant consi!eration. 6$ile -# No.
81G0 contains a $ol!Dover &rovision inc%mbent )M o((icials
can remain in o((ice onl' %ntil t$eir s%ccessors $ave been
electe! or .%ali(ie!. On 7%l' 1C /55/ ,$en t$e )M
elections are $el! t$e $ol!Dover &erio! e4&ires an! all
inc%mbent )M o((icials a%tomaticall' cease to $ol! t$eir )M
o((ices an! t$eir e4Do((icio &%blic o((ices.
Munez v. Ari@o
Facts: Ma'or *risari o( Loreto #g%san !el )%r s%mmone! to $is
o((ice $erein com&lainant #&olinario ). M%ReB (or con(erence
res&ecting a lan! !is&%te ,$ic$ M%ReB $a! ,it$ one 2irso #ma!o.
#s com&lainant (aile! to atten! t$e con(erence Ma'or *risari iss%e!
a ,arrant o( arrest against $im on December /7 1888. 2$e ,arrant
,as serve! an! b' virt%e o( it com&lainant ,as bro%g$t be(ore
Ma'or *risari alt$o%g$ no investigation ,as later
con!%cte!.Com&lainant (ile! a com&laint against Ma'or *risari (or
grave miscon!%ct an! %s%r&ation o( 9%!icial (%nction ,it$ t$e O((ice
o( t$e Omb%!sman as ,ell as a!ministrative com&laint (or violation
o( t$e Constit%tion miscon!%ct in o((ice an! ab%se o( a%t$orit' ,it$
t$e )angg%niang =anlala,igan o( #g%san !el )%r. #(ter &reliminar'
investigation t$e investigating o((icer o( t$e O((ice o( t$e
Omb%!sman (ile! a case (or %s%r&ation o( 9%!icial (%nction against
Ma'or #s%ero *risari in t$e M%nici&al Circ%it 2rial Co%rt o( Loreto
#g%san !el )%r. Originall' ra((le! to t$e 9%!ge o( t$at co%rt t$e
criminal case ,as later assigne! to res&on!ent 7%!ge Ciriaco #riRo
on acco%nt o( t$e in$ibition o( t$e (irst 9%!ge. #cc%se! *risari move!
to .%as$ t$e in(ormation on t$e gro%n! t$at t$e acts com&laine! o(
!i! not constit%te a crime %n!er t$e la,. He conten!e! t$at %n!er
)ec. 101;1< o( t$e (ormer LGC ;Batas =ambansa Blg. 117< ma'ors
,ere a%t$oriBe! to iss%e ,arrants o( arrest. 7%!ge #riRo !enie! t$e
motion to .%as$ on t$e gro%n! t$at t$e &o,er o( ma'ors to iss%e
,arrants o( arrest $a! cease! to e4ist as o( Febr%ar' / 1887 ,$en
t$e Constit%tion too+ e((ect. For its &art t$e )angg%niang
118
=anlala,igan acting on t$e a!ministrative com&laint against t$e
ma'or (o%n! $im g%ilt' o( miscon!%ct in o((ice an! ab%se o(
a%t$orit' an! accor!ingl' or!ere! $im s%s&en!e! (or eig$t ;8<
mont$s ,it$o%t &a'. On a&&eal $o,ever t$e De&artment o(
*nterior an! Local Government ;D*LG< reverse! on t$e gro%n! t$at
,$at t$e ma'or $a! iss%e! to t$e com&lainant alt$o%g$
!enominate! "6arrant o( #rrest" ,as act%all' 9%st an invitation or
a s%mmons. Ma'or *risari (ile! a motion (or reconsi!eration o( t$e
or!er o( !enial o( res&on!ent 9%!ge invo+ing t$e resol%tion o( t$e
D*LG. 7%!ge #riRo reconsi!ere! $is &revio%s or!er an! !ismisse!
t$e case. -es&on!ent sai! in $is or!er: 2$e acc%se! in $is Motion
(or -econsi!eration asserts t$at since t$e .%estion abo%t t$e
,arrant o( arrest iss%e! against #&olinario M%ReB $as been
resolve! in an a!ministrative &rocee!ings as not t$e ,arrant o(
arrest contem&late! b' la, it ,o%l! (ollo, t$en t$at t$is case no,
be(ore t$is Co%rt against t$e acc%se! be !ismisse!. 2$e Co%rt (in!s
t$at t$e s%b9ect matter in t$is case an! t$at in t$e a!ministrative
com&laint arose (rom one an! t$e same inci!ent an! it involve! t$e
same &arties. Co%rts are not bo%n! b' t$e (in!ings o(
a!ministrative agencies li+e t$e D*LG as in t$is case i( s%c$ (in!ings
are tainte! ,it$ %n(airness an! t$ere is arbitrar' action or &al&able
serio%s error. 2$e Co%rt believes t$at t$e resol%tion b' t$e
a!ministrative agenc' in DLGD#CDG5D81 is not tainte! ,it$
%n(airness an! arbitrariness neit$er it s$o,s arbitrar' action or
&al&able an! serio%s error t$ere(ore it m%st be res&ecte!
;Mang%bat vs. !e Castro G.-. 1188/A 7%l' /8 1888A Bl%e Bar
Cocon%t =$ili&&ines vs. 2ant%ico 7r. et al. G.-. 075C1 7%l' /8
1888 C%er!o vs. Commission on #%!it G.-. 80C8/ October /7
1888<. @&on recei&t o( t$is or!er com&lainant M%ReB sent t,o
letters !ate! 7%l' C an! 1/ 1811 to t$e =resi!ential #ntiDCrime
Commission c$arging res&on!ent 7%!ge Ciriaco C. #riRo ,it$
+no,ingl' ren!ering an %n9%st 9%!gment (or !ismissing t$e case
against Ma'or *risari. 2$e matter ,as in!orse! to t$e O((ice o( t$e
Omb%!sman ,$ic$ as alrea!' state! re(erre! it to t$is Co%rt (or
&ossible !isci&linar' action against res&on!ent 9%!ge.
*ss%e: 6ON t$e 7%!ge ma' be $el! a!ministrativel' liable. :3).
2$e acts allege! in t$e in(ormation constit%te a crime.
@n!er #rt. /01 o( t$e -evise! =enal Co!e t$e crime o(
%s%r&ation o( 9%!icial a%t$orit' involves t$e (ollo,ing
elements: ;1< t$at t$e o((en!er is an o((icer o( t$e e4ec%tive
branc$ o( t$e governmentA an! ;/< t$at $e ass%mes 9%!icial
&o,ers or obstr%cts t$e e4ec%tion o( an' or!er or !ecision
ren!ere! b' an' 9%!ge ,it$in $is 9%ris!iction. 2$ese
elements ,ere allege! in t$e in(ormation. Ma'or *risari ,as
an o((icer o( t$e e4ec%tive branc$.
*t is not tr%e t$at ,$at $e $a! iss%e! against t$e
com&lainant ,as not a ,arrant o( arrest. *t ,as. *n &lain
terms it state!: E:o% are $ereb' re.%este!?or!ere! to e((ect
t$e arrest o( #&olinario M%ReB o( =oblacion Loreto #g%san
!el )%r (or $is re(%sal to ac+no,le!ge t$e )%mmons !ate!
December /G 1888 an! bring $im be(ore t$e O((ice o( t$e
M%nici&al Ma'or to ans,er an in.%ir'?investigation in
connection ,it$ t$e com&laint o( one 2irso #ma!o $el!
&en!ing be(ore t$is O((ice.F ;)g!< #)@3-O ). *-*)#-*
M%nici&al Ma'or. For an! in t$e absence o( t$e M%nici&al
Circ%it 7%!ge.
#n' one rea!ing t$e ,arrant co%l! not $ave been mista+en
t$at it ,as a ,arrant (or t$e arrest o( t$e com&lainant
#&olinario M%ReB. #s a matter o( (act Ma'or *risari 9%sti(ie!
$is or!er on t$e basis o( )ec. 101;1< o( t$e (ormer LGC
,$ic$ e4&ressl' &rovi!e! t$at in cases ,$ere t$e ma'or
ma' con!%ct &reliminar' investigation t$e ma'or s$all
%&on &robable ca%se a(ter e4amination o( ,itnesses $ave
t$e a%t$orit' to or!er t$e arrest o( t$e acc%se!." 2$is
&rovision $a! $o,ever been re&eale! b' #rt. *** )ec. / o(
t$e 1887 Constit%tion
=onsica v. *gnalaga: No longer !oes t$e ma'or $ave at t$is
time t$e &o,er to con!%ct &reliminar' investigations m%c$
less iss%e or!ers o( arrest. )ection 101 o( t$e LGC
con(erring t$is &o,er on t$e ma'or $as been abrogate!
ren!ere! (%nct%s o((icio b' t$e 1887 Constit%tion ,$ic$ too+
e((ect on Febr%ar' / 1887 t$e !ate o( its rati(ication b' t$e
Fili&ino &eo&le. )ection / #rticle *** o( t$e 1887 Constit%tion
&ertinentl' &rovi!es t$at "no searc$ ,arrant or ,arrant o(
arrest s$all iss%e e4ce&t %&on &robable ca%se to be
!etermine! &ersonall' b' t$e 9%!ge a(ter e4amination %n!er
oat$ or a((irmation o( t$e com&lainant an! t$e ,itnesses $e
ma' &ro!%ce an! &artic%larl' !escribing t$e &lace to be
searc$e! an! t$e &erson or t$ings to be seiBe!." 2$e
constit%tional &roscri&tion $as t$ereb' been mani(este! t$at
t$ence(ort$ t$e (%nction o( !etermining &robable ca%se an!
iss%ing on t$e basis t$ereo( ,arrants o( arrest or searc$
,arrants ma' be vali!l' e4ercise! onl' b' 9%!ges t$is
118
being evi!ence! b' t$e elimination in t$e &resent
Constit%tion o( t$e &$rase "s%c$ ot$er res&onsible o((icer as
ma' be a%t$oriBe! b' la," (o%n! in t$e co%nter&art
&rovision o( sai! 1871 Constit%tion D ,$o asi!e (rom 9%!ges
mig$t con!%ct &reliminar' investigation an! iss%e ,arrants
o( arrest or searc$ ,arrants.
2$at t$ere ,as no &en!ing criminal case against t$e
com&lainant !i! not ma+e t$e or!er against $im an' less an
or!er o( arrest contrar' to t$e o&inion o( D*LG.
On t$e ot$er $an! t$e iss%ance o( t$e ,arrant ,$en t$ere
,as be(ore $im no criminal case b%t onl' a lan! !is&%te as
it is no, being ma!e to a&&ear onl' ma!e it ,orse (or t$e
ma'or (or it ,o%l! t$en a&&ear t$at $e ass%me! a 9%!icial
(%nction ,$ic$ even a 9%!ge co%l! not $ave !one. #ll t$e
more t$ere(ore res&on!ent 9%!ge s$o%l! not $ave
!ismisse! t$e criminal case against t$e ma'or.
*t cannot be &reten!e! t$at Ma'or *risari merel' inten!e! to
invite or s%mmon M%ReB to $is o((ice beca%se $e $a!
&recisel' !one t$is t$e !a' be(ore $e iss%e! t$e ,arrant o(
arrest an! $e or!ere! t$e arrest o( com&lainant beca%se
t$e latter $a! re(%se! to a&&ear be(ore $im. 2$e s%mmons
iss%e! b' Ma'or *risari s$o,s clearl' t$at $e %n!erstoo! t$e
!i((erence bet,een a s%mmons an! a ,arrant o( arrest. 2$e
s%mmons rea!: E:o% are $ereb' !eman!e! to a&&ear
be(ore t$e O((ice o( t$e M%nici&al Ma'or on /7 December
1888 at aro%n! 8:15 #.M. t$en an! t$ere to ans,er in an
in.%ir'?investigation in connection ,it$ a certain com&laint
o( Mr. 2irso #ma!o lo!ge! in t$is o((ice.
*n!ee! res&on!ent $a! &revio%sl' !enie! t$e motion to
!ismiss ,$ic$ t$e acc%se! Ma'or *risari $a! (ile! on t$e
gro%n! t$at t$e a%t$orit' invo+e! b' $im as basis (or $is
,arrant o( arrest $a! been abrogate! b' t$e Constit%tion.
He s%bse.%entl' reverse! $imsel( on t$e gro%n! t$at t$e
!ecision o( t$e D*LG (in!ing Ma'or *risari not g%ilt' "m%st
be res&ecte!." He sai! "Co%rts are not bo%n! b' (in!ings o(
a!ministrative agencies li+e t$e D*LG as in t$is case i( s%c$
(in!ings are tainte! ,it$ %n(airness an! t$ere is arbitrar'
action or &al&able serio%s error." )ince t$e D*LG !ecision
,as not so tainte! "t$ere(ore it m%st be res&ecte!."
7%!ge Ciriaco #riRo s$o%l! $ave +no,n t$at t$e case o(
Ma'or *risari ,as not be(ore $im on revie, (rom t$e !ecision
o( an a!ministrative agenc' an! t$ere(ore t$ere ,as no
basis (or a&&l'ing t$e r%le on s%bstantialit' o( evi!ence.
6$at ,as be(ore $im ,as a criminal case an! $e s$o%l!
$ave consi!ere! solel' t$e (acts allege! in t$e in(ormation
in resolving t$e motion to !ismiss o( t$e acc%se!.
Greater Balanga *evelopment Corporation /supra1
105
101
Lim an Gara#blas v. CA
Facts: On December 7 188/ Bistro (ile! be(ore t$e trial co%rt a
&etition (or man!am%s an! &ro$ibition ,it$ &ra'er (or tem&orar'
restraining or!er or ,rit o( &reliminar' in9%nction against Lim in $is
ca&acit' as Ma'or o( t$e Cit' o( Manila. Bistro (ile! t$e case
beca%se &olicemen %n!er Lim>s instr%ctions ins&ecte! an!
investigate! Bistro>s license as ,ell as t$e ,or+ &ermits an! $ealt$
certi(icates o( its sta((. 2$is ca%se! t$e sto&&age o( ,or+ in Bistro>s
nig$t cl%b an! resta%rant o&erations. Lim also re(%se! to acce&t
Bistro>s a&&lication (or a b%siness license as ,ell as t$e ,or+
&ermit a&&lications o( Bistro>s sta(( (or t$e 'ear 1881. 2C: iss%e!
(irst assaile! 2-O a(ter $earing co%rt grante! Bistro>s a&&lication
(or a ,rit o( &ro$ibitor' &reliminar' in9%nction. Des&ite t$e trial
co%rt>s or!er Lim still iss%e! a clos%re or!er on Bistro>s o&erations
even sen!ing &olicemen to carr' o%t $is clos%re or!er. Bistro (ile!
an "@rgent Motion (or Contem&t" against Lim an! t$e &olicemen
,$o sto&&e! Bistro>s o&erations. #t t$e $earing o( t$e motion (or
contem&t Bistro ,it$!re, its motion on con!ition t$at Lim ,o%l!
res&ect t$e co%rt>s in9%nction. Lim acting t$ro%g$ $is agents an!
&olicemen again !isr%&te! Bistro>s b%siness o&erations.
Mean,$ile Lim (ile! a motion to !issolve t$e in9%nctive or!er an!
to !ismiss t$e case. Lim insiste! t$at t$e &o,er o( a ma'or to
ins&ect an! investigate commercial establis$ments an! t$eir sta((
is im&licit in t$e stat%tor' &o,er o( t$e cit' ma'or to iss%e s%s&en!
or revo+e b%siness &ermits an! licenses. 2$is stat%tor' &o,er is
e4&ressl' &rovi!e! (or in )ection 11 ;l< #rticle ** o( t$e -evise!
C$arter o( t$e Cit' o( Manila an! in )ection 0CC &aragra&$ 1 ;iv< o(
t$e LGC. 2C !enie!. Lim (ile! ,it$ t$e C# a &etition (or certiorari
&ro$ibition an! man!am%s against Bistro an! 7%!ge 6il(re!o
-e'es. Lim claime! t$at t$e trial 9%!ge committe! grave ab%se o(
!iscretion amo%nting to lac+ o( 9%ris!iction in iss%ing t$e ,rit o(
&ro$ibitor' &reliminar' in9%nction. C# !enie!. M- !enie!. Manila
Cit' Or!inance No. 778110 too+ e((ect. On t$e same !a' Lim
or!ere! t$e 6estern =olice District Comman! to &ermanentl' close
!o,n t$e o&erations o( Bistro ,$ic$ or!er t$e &olice im&lemente!
at once.
*ss%e: 6ON Lim as Ma'or o( t$e Cit' o( Manila &ro&erl' close!
!o,n t$e o&erations o( Bistro. NO.
2$e a%t$orit' o( ma'ors to iss%e b%siness licenses an!
&ermits is be'on! .%estion. 2$e la, e4&ressl' &rovi!es (or
s%c$ a%t$orit'. )ection 11 ;l< #rticle ** o( t$e -evise!
10/
C$arter o( t$e Cit' o( Manila rea!s: 2$e general !%ties an!
&o,ers o( t$e ma'or s$all be: ;l< 2o grant an! re(%se
m%nici&al licenses or &ermits o( all classes an! to revo+e
t$e same (or violation o( t$e con!itions %&on ,$ic$ t$e'
,ere grante! or i( acts &ro$ibite! b' la, or m%nici&al
or!inances are being committe! %n!er t$e &rotection o(
s%c$ licenses or in t$e &remises in ,$ic$ t$e b%siness (or
,$ic$ t$e same $ave been grante! is carrie! on or (or an'
ot$er reason o( general interest." On t$e ot$er $an!
)ection 0CC ;1< ;iv< o( t$eLGC &rovi!es: ;b< For e((icient
e((ective an! economical governance t$e &%r&ose o( ,$ic$
is t$e general ,el(are o( t$e Cit' an! its in$abitants
&%rs%ant to )ection 1G o( t$is Co!e t$e Cit' Ma'or s$all:
;iv< *ss%e licenses an! &ermits an! s%s&en! or revo+e t$e
same (or an' violation o( t$e con!ition %&on ,$ic$ sai!
licenses or &ermits $a! been iss%e! &%rs%ant to la, or
or!inance."
From t$e lang%age o( t$e t,o la,s it is clear t$at t$e &o,er
o( t$e ma'or to iss%e b%siness licenses an! &ermits
necessaril' incl%!es t$e corollar' &o,er to s%s&en! revo+e
or even re(%se to iss%e t$e same. Ho,ever t$e &o,er to
s%s&en! or revo+e t$ese licenses an! &ermits is e4&ressl'
&remise! on t$e violation o( t$e con!itions o( t$ese &ermits
an! licenses. 2$e la,s s&eci(icall' re(er to t$e "violation o(
t$e con!ition;s<" on ,$ic$ t$e licenses an! &ermits ,ere
iss%e!. )imilarl' t$e &o,er to re(%se to iss%e s%c$ licenses
an! &ermits is &remise! on nonDcom&liance ,it$ t$e
&rere.%isites (or t$e iss%ance o( s%c$ licenses an! &ermits.
2$e ma'or m%st observe !%e &rocess in e4ercising t$ese
&o,ers ,$ic$ means t$at t$e ma'or m%st give t$e
a&&licant or licensee notice an! o&&ort%nit' to be $ear!.
2r%e t$e ma'or $as t$e &o,er to ins&ect an! investigate
&rivate commercial establis$ments (or an' violation o( t$e
con!itions o( t$eir licenses an! &ermits. Ho,ever t$e ma'or
$as no &o,er to or!er a &olice rai! on t$ese establis$ments
in t$e g%ise o( ins&ecting or investigating t$ese commercial
establis$ments. Lim acte! be'on! $is a%t$orit' ,$en $e
!irecte! &olicemen to rai! t$e Ne, Bang+o+ Cl%b an! t$e
34otic Gar!en -esta%rant. )%c$ act o( Lim violate!
Or!inance No. 771G18 ,$ic$ e4&ressl' &ro$ibits &olice rai!s
an! ins&ections to ,it: No member o( t$e 6estern =olice
District s$all con!%ct ins&ection o( (oo! an! ot$er b%siness
establis$ments (or t$e &%r&ose o( en(orcing sanitar' r%les
an! reg%lations ins&ecting licenses an! &ermits an!?or
en(orcing internal reven%e an! c%stoms la,s an!
reg%lations. 2$is res&onsibilit' s$o%l! be &ro&erl' e4ercise!
b' Local Government #%t$orities an! ot$er concerne!
agencies."
Lim $as no a%t$orit' to close !o,n Bistro>s b%siness or an'
b%siness establis$ment in Manila ,it$o%t !%e &rocess o(
la,. Lim cannot ta+e re(%ge %n!er t$e -evise! C$arter o(
t$e Cit' o( Manila an! t$e LGC. 2$ere is no &rovision in
t$ese la,s e4&ressl' or im&lie!l' granting t$e ma'or
a%t$orit' to close !o,n &rivate commercial establis$ments
,it$o%t notice an! $earing an! even i( t$ere is s%c$
&rovision ,o%l! be voi!. 2$e !%e &rocess cla%se o( t$e
Constit%tion re.%ires t$at Lim s$o%l! $ave given Bistro an
o&&ort%nit' to reb%t t$e allegations t$at it violate! t$e
con!itions o( its licenses an! &ermits.
2$e reg%lator' &o,ers grante! to m%nici&al cor&orations
m%st al,a's be e4ercise! in accor!ance ,it$ la, ,it$
%tmost observance o( t$e rig$ts o( t$e &eo&le to !%e
&rocess an! e.%al &rotection o( t$e la,. )%c$ &o,er cannot
be e4ercise! ,$imsicall' arbitraril' or !es&oticall'. *n t$e
instant case ,e (in! t$at Lim>s e4ercise o( t$is &o,er
violate! Bistro>s &ro&ert' rig$ts t$at are &rotecte! %n!er t$e
!%e &rocess cla%se o( t$e Constit%tion.
Lim !i! not c$arge Bistro ,it$ an' s&eci(ic violation o( t$e
con!itions o( its b%siness license or &ermits. )till Lim close!
!o,n Bistro>s o&erations even be(ore t$e e4&iration o( its
b%siness license on December 11 188/. Lim also re(%se! to
acce&t Bistro>s license a&&lication (or 1881 in e((ect
!en'ing t$e a&&lication ,it$o%t e4amining ,$et$er it
com&lies ,it$ legal &rere.%isites.
*isomancop v. *atumanong
Facts: -# G710 "#n #ct =rovi!ing (or #n Organic #ct (or t$e
#%tonomo%s -egion in M%slim Min!anao" ,as enacte! an! signe!
into la,. Lanao !el )%r Mag%in!anao )%l% an! 2a,iD2a,i
&%rs%ant to a &lebiscite became t$e #-MM. *n accor!ance ,it$ -.#.
G710 t$en =resi!ent #.%ino iss%e! 3.O. 0/G "=lacing t$e Control
an! )%&ervision o( t$e O((ices o( t$e De&artment o( =%blic 6or+s
an! Hig$,a's ,it$in t$e #-MM %n!er t$e #%tonomo%s -egional
101
Government an! (or ot$er &%r&oses." #-MM ,as (ormall'
organiBe! on G November 1885. =resi!ent CoraBon C. #.%ino (le,
to Cotabato t$e seat o( t$e -egional Government (or t$e
ina%g%ration. #t t$at &oint s$e $a! alrea!' signe! 7 3Os !evolving
to #-MM t$e &o,ers o( 7 cabinet !e&artments namel': ;1< local
governmentA ;/< labor an! em&lo'mentA ;1< science an!
tec$nolog'A ;0< &%blic ,or+s an! $ig$,a'sA ;C< social ,el(are an!
!evelo&mentA ;G< to%rismA an! ;7< environment an! national
reso%rces. Nearl' nine 'ears later t$en D=6H )ecretar' Kigilar
iss%e! D.O. 118 ,$ic$ &rovi!es t$at a D=6H Mara,i )%bDDistrict
3ngineering O((ice s$all $ave 9%ris!iction over all national
in(rastr%ct%re &ro9ects an! (acilities %n!er t$e D=6H ,it$in Mara,i
Cit' an! t$e &rovince o( Lanao !el )%r. 2$e $ea!.%arters o( t$e
Mara,i )%bDDistrict 3ngineering O((ice s$all be at t$e (ormer
.%arters o( t$e Mara,i Cit' 3ngineering O((ice. =ersonnel o( t$e
aboveDmentione! )%bDDistrict 3ngineering O((ice s$all be ma!e %&
o( em&lo'ees o( t$e National Government )ection o( t$e (ormer
Mara,i Cit' 3ngineering O((ice ,$o are no, assigne! ,it$ t$e
*ligan Cit' )%bDDistrict 3ngineering O((ice as ma' be !etermine! b'
t$e D=6H -egion J** -egional Director. #lmost / 'ears later t$en
=resi!ent 3stra!a a&&rove! an! signe! into la, -.#. 8888 ,$ic$
constit%te! t$e Cit' o( Mara,i an! t$e m%nici&alities com&rising
t$e First District o( t$e =rovince o( Lanao !el )%r into an
engineering !istrict to be +no,n as t$e First 3ngineering District o(
t$e =rovince o( Lanao !el )%r. Congress later &asse! -.#. 85C0 "#n
#ct to )trengt$en an! 34&an! t$e Organic #ct (or t$e #%tonomo%s
-egion in M%slim Min!anao #men!ing (or t$e =%r&ose -e&%blic #ct
No. G710 entitle! #n #ct =rovi!ing (or t$e #-MM as #men!e!."
Li+e its (orer%nner -.#. 85C0 contains !etaile! &rovisions on t$e
&o,ers o( t$e -egional Government an! t$e retaine! areas o(
governance o( t$e National Government. -.#. 85C0 la&se! into la,.
*t ,as rati(ie! in a &lebiscite. 2$e &rovince o( Basilan an! t$e Cit' o(
Mara,i also vote! to 9oin #-MM on t$e same !ate. -.#. G710 an!
-.#. 85C0 are collectivel' re(erre! to as t$e #-MM Organic #cts. On
/1 7%l' /551 &etitioners Disomangco& an! Dimalotang a!!resse! a
&etition to t$en D=6H )ecretar' Dat%manong see+ing t$e
revocation o( D.O. 118 an! t$e nonDim&lementation o( -.#. 8888.
No action $o,ever ,as ta+en on t$e &etition.
*ss%es: 1. 6ON &etitioners $ave legal stan!ing. :3).
Legal stan!ing or loc%s stan!i is !e(ine! as a &ersonal an!
s%bstantial interest in t$e case s%c$ t$at t$e &art' $as
s%staine! or ,ill s%stain !irect in9%r' as a res%lt o( t$e
governmental act t$at is being c$allenge!. 2$e term
"interest" means a material interest an interest in iss%e
a((ecte! b' t$e !ecree as !isting%is$e! (rom a mere
interest in t$e .%estion involve! or a mere inci!ental
interest.
# &art' c$allenging t$e constit%tionalit' o( a la, act or
stat%te m%st s$o, "not onl' t$at t$e la, is invali! b%t also
t$at $e $as s%staine! or is in imme!iate or imminent
!anger o( s%staining some !irect in9%r' as a res%lt o( its
en(orcement an! not merel' t$at $e s%((ers t$ereb' in
some in!e(inite ,a'." He m%st s$o, t$at $e $as been or is
abo%t to be !enie! some rig$t or &rivilege to ,$ic$ $e is
la,(%ll' entitle! or t$at $e is abo%t to be s%b9ecte! to some
b%r!ens or &enalties b' reason o( t$e stat%te com&laine! o(.
B%t (ollo,ing t$e ne, tren! t$is Co%rt is incline! to ta+e
cogniBance o( a s%it alt$o%g$ it !oes not satis(' t$e
re.%irement o( legal stan!ing ,$en &aramo%nt interests are
involve!. *n several cases t$e Co%rt $as a!o&te! a liberal
stance on t$e loc%s stan!i o( a &etitioner ,$ere t$e
&etitioner is able to cra(t an iss%e o( transcen!ental
signi(icance to t$e &eo&le.
*n t$e instant case &etitioner Disomangco& $ol!s t$e
&osition o( 3ngineer *K. 6$en $e (ile! t$is &etition $e ,as
t$e O((icerDinDC$arge O((ice o( t$e District 3ngineer o( t$e
First 3ngineering District o( D=6HD#-MM Lanao !el )%r. On
t$e ot$er $an! &etitioner Dimalotang is an 3ngineer ** an!
=resi!ent o( t$e ran+ an! (ile em&lo'ees also o( t$e First
3ngineering District o( D=6HD#-MM in Lanao !el )%r. Bot$
are c$arge! ,it$ t$e !%t' an! res&onsibilit' o( s%&ervising
an! im&lementing all &%blic ,or+s &ro9ects to be %n!erta+en
an! being %n!erta+en in Lanao !el )%r ,$ic$ is t$e area o(
t$eir 9%ris!iction.
*t is t$%s not (arD(etc$e! t$at t$e creation o( t$e Mara,i )%bD
District 3ngineering O((ice %n!er D.O. 118 an! t$e creation
o( an! a&&ro&riation o( (%n!s to t$e First 3ngineering
District o( Lanao !el )%r as !irecte! %n!er -.#. 8888 ,ill
a((ect t$e &o,ers (%nctions an! res&onsibilities o( t$e
&etitioners an! t$e D=6HD#-MM. #s t$e t,o o((ices $ave
a&&arentl' been en!o,e! ,it$ (%nctions almost i!entical to
t$ose o( D=6HD#-MM First 3ngineering District in Lanao !el
)%r it is li+el' t$at &etitioners are in imminent !anger o(
100
being ease! o%t o( t$eir !%ties an! not remotel' even t$eir
9obs. 2$eir material an! s%bstantial interests ,ill !e(initel'
be &re9%!ice! b' t$e en(orcement o( D.O. 118 an! -.#.
8888. )%c$ in9%r' is !irect an! imme!iate. 2$%s t$e' can
legitimatel' c$allenge t$e vali!it' o( t$e enactments s%b9ect
o( t$e instant case.
/. 6ON -.#. 8888 is constit%tional.
2$e c$allenge! la, never became o&erative an! ,as
s%&erse!e! or re&eale! b' a s%bse.%ent enactment. 2$e
#-MM Organic #cts are !eeme! a &art o( t$e regional
a%tonom' sc$eme. 6$ile t$e' are classi(ie! as stat%tes t$e
Organic #cts are more t$an or!inar' stat%tes beca%se t$e'
en9o' a((irmation b' a &lebiscite. Hence t$e &rovisions
t$ereo( cannot be amen!e! b' an or!inar' stat%te s%c$ as
-.#. 8888 in t$is case. 2$e amen!ator' la, $as to be
s%bmitte! to a &lebiscite.
2$e (irst #-MM Organic #ct -.#. G570 as im&lemente! b'
3.O. 0/G !evolve! t$e (%nctions o( t$e D=6H in t$e #-MM
,$ic$ incl%!es Lanao !el )%r ;min%s Mara,i Cit' at t$e
time<18 to t$e -egional Government. B' creating an o((ice
,it$ &revio%sl' !evolve! (%nctions -.#. 8888 in essence
so%g$t to amen! -.#. G570. 2$e amen!ator' la, s$o%l!
t$ere(ore (irst obtain t$e a&&roval o( t$e &eo&le o( t$e
#-MM be(ore it co%l! vali!l' ta+e e((ect. #bsent com&liance
,it$ t$is re.%irement -.#. 8888 $as not even become
o&erative.
From anot$er &ers&ective -.#. 8888 ,as re&eale! an!
s%&erse!e! b' -.#. 85C0. 6$ere a stat%te o( later !ate
clearl' reveals an intention on t$e &art o( t$e legislat%re to
abrogate a &rior act on t$e s%b9ect t$at intention m%st be
given e((ect. O( co%rse t$e intention to re&eal m%st be clear
an! mani(est. *m&lie! re&eal b' irreconcilable inconsistenc'
ta+es &lace ,$en t$e t,o stat%tes cover t$e same s%b9ect
matterA t$e' are clearl' inconsistent an! incom&atible ,it$
eac$ ot$er t$at t$e' cannot be reconcile! or $armoniBe!A
an! bot$ cannot be given e((ect t$at is t$at one la, cannot
be en(orce! ,it$o%t n%lli('ing t$e ot$er.
-.#. 85C0 is anc$ore! on t$e 1887 Constit%tion. *t a!vances
t$e constit%tional grant o( a%tonom' b' !etailing t$e &o,ers
o( t$e #-G covering among ot$ers Lanao !el )%r an!
Mara,i Cit' one o( ,$ic$ is its 9%ris!iction over regional
%rban an! r%ral &lanning. -.#. 8888 $o,ever vent%res to
reestablis$ t$e National GovernmentHs 9%ris!iction over
in(rastr%ct%re &rograms in Lanao !el )%r. -.#. 8888 is
&atentl' inconsistent ,it$ -.#. 85C0 an! it !estro's t$e
latter la,Hs ob9ective.
Clearl' -.#. 8888 is antagonistic to an! cannot be
reconcile! ,it$ bot$ #-MM Organic #cts -.#. G710 an! -.#.
85C0. 2$e +ernel o( t$e antagonism an! !is$armon' lies in
t$e regional a%tonom' ,$ic$ t$e #-MM Organic #cts or!ain
&%rs%ant to t$e Constit%tion. On t$e ot$er $an! -.#. 8888
contravenes tr%e !ecentraliBation ,$ic$ is t$e essence o(
regional a%tonom'.
-egional #%tonom' @n!er -.#. G710 an! -.#. 85C0: 2$e
1887 Constit%tion man!ates regional a%tonom' to give a
bol! an! %ne.%ivocal ans,er to t$e cr' (or a meaning(%l
e((ective an! (orce(%l a%tonom'.0/ #ccor!ing to
Commissioner 7ose Nolle!o C$airman o( t$e Committee
,$ic$ !ra(te! t$e &rovisions it "is an in!ictment against t$e
stat%s .%o o( a %nitar' s'stem t$at to m' min! $as
inel%ctabl' tie! t$e $an!s o( &rogress in o%r co%ntr' . . . o%r
var'ing regional c$aracteristics are (actors to ca&italiBe on
to attain national strengt$ t$ro%g$ !ecentraliBation. 2$e
i!ea be$in! t$e Constit%tional &rovisions (or a%tonomo%s
regions is to allo, t$e se&arate !evelo&ment o( &eo&les
,it$ !istinctive c%lt%res an! tra!itions. 2$ese c%lt%res as a
matter o( rig$t m%st be allo,e! to (lo%ris$.
#%tonom' as a national &olic' recogniBes t$e ,$oleness o(
t$e =$ili&&ine societ' in its et$noling%istic c%lt%ral an!
even religio%s !iversities. *t strives to (ree =$ili&&ine societ'
o( t$e strain an! ,astage ca%se! b' t$e assimilationist
a&&roac$. =olicies emanating (rom t$e legislat%re are
invariabl' assimilationist in c$aracter !es&ite c$annels
being o&en (or minorit' re&resentation. #s a res%lt
!emocrac' becomes an iron' to t$e minorit' gro%&.
2$e nee! (or regional a%tonom' is more &ressing in t$e case
o( t$e Fili&ino M%slims an! t$e Cor!illera &eo&le ,$o $ave
been (ig$ting (or it. 2$eir &olitical str%ggle $ig$lig$ts t$eir
%ni.%e c%lt%res an! t$e %nres&onsiveness o( t$e %nitar'
s'stem to t$eir as&irations. 2$e MorosH str%ggle (or sel(D
!etermination !ates as (ar bac+ as t$e )&anis$ con.%est in
t$e =$ili&&ines. 3ven at &resent t$e str%ggle goes on.
=er(orce regional a%tonom' is also a means to,ar!s solving
e4isting serio%s &eace an! or!er &roblems an! secessionist
10C
movements. =arent$eticall' a%tonom' !ecentraliBation
an! regionaliBation in international la, $ave become
&oliticall' acce&table ans,ers to intractable &roblems o(
nationalism se&aratism et$nic con(lict an! t$reat o(
secession.
Ho,ever t$e creation o( a%tonomo%s regions !oes not
signi(' t$e establis$ment o( a sovereignt' !istinct (rom t$at
o( t$e -e&%blic as it can be installe! onl' ",it$in t$e
(rame,or+ o( t$is Constit%tion an! t$e national sovereignt'
as ,ell as territorial integrit' o( t$e -e&%blic o( t$e
=$ili&&ines." -egional a%tonom' is t$e !egree o( sel(D
!etermination e4ercise! b' t$e local government %nit visD`D
vis t$e central government.
2$e ob9ective o( t$e a%tonom' s'stem is to &ermit
!etermine! gro%&s ,it$ a common tra!ition an! s$are!
socialDc%lt%ral c$aracteristics to !evelo& (reel' t$eir ,a's o(
li(e an! $eritage e4ercise t$eir rig$ts an! be in c$arge o(
t$eir o,n b%siness. 2$is is ac$ieve! t$ro%g$ t$e
establis$ment o( a s&ecial governance regime (or certain
member comm%nities ,$o c$oose t$eir o,n a%t$orities
(rom ,it$in t$e comm%nit' an! e4ercise t$e 9%ris!ictional
a%t$orit' legall' accor!e! to t$em to !eci!e internal
comm%nit' a((airs.
DecentraliBation is a !ecision b' t$e central government
a%t$oriBing its s%bor!inates ,$et$er geogra&$icall' or
(%nctionall' !e(ine! to e4ercise a%t$orit' in certain areas. *t
involves !ecisionDma+ing b' s%bnational %nits. *t is t'&icall'
a !elegate! &o,er ,$erein a larger government c$ooses to
!elegate certain a%t$orit' to more local governments.
Fe!eralism im&lies some meas%re o( !ecentraliBation b%t
%nitar' s'stems ma' also !ecentraliBe. DecentraliBation
!i((ers intrinsicall' (rom (e!eralism in t$at t$e s%bD%nits t$at
$ave been a%t$oriBe! to act ;b' !elegation< !o not &ossess
an' claim o( rig$t against t$e central government.
DecentraliBation comes in t,o (ormsS!econcentration an!
!evol%tion. Deconcentration is a!ministrative in nat%reA it
involves t$e trans(er o( (%nctions or t$e !elegation o(
a%t$orit' an! res&onsibilit' (rom t$e national o((ice to t$e
regional an! local o((ices. 2$is mo!e o( !ecentraliBation is
also re(erre! to as a!ministrative !ecentraliBation.
Devol%tion on t$e ot$er $an! connotes &olitical
!ecentraliBation or t$e trans(er o( &o,ers res&onsibilities
an! reso%rces (or t$e &er(ormance o( certain (%nctions (rom
t$e central government to local government %nits. 2$is is a
more liberal (orm o( !ecentraliBation since t$ere is an act%al
trans(er o( &o,ers an! res&onsibilities. *t aims to grant
greater a%tonom' to local government %nits in cogniBance
o( t$eir rig$t to sel(Dgovernment to ma+e t$em sel(Dreliant
an! to im&rove t$eir a!ministrative an! tec$nical
ca&abilities.
2$e !imin%tion o( CongressH &o,ers over a%tonomo%s
regions ,as con(irme! in GanBon v. Co%rt o( #&&eals: "t$e
omission ;o( "as ma' be &rovi!e! b' la,"< signi(ies not$ing
more t$an to %n!erscore local governmentsH a%tonom' (rom
Congress an! to brea+ CongressH HcontrolH over local
government a((airs." 2$is is tr%e to s%b9ects over ,$ic$
a%tonomo%s regions $ave &o,ers as s&eci(ie! in )ections
18 an! /5 #rticle J o( t$e 1887 Constit%tion. 34&ressl' not
incl%!e! t$erein are &o,ers over certain areas. 6ort$' o(
note is t$at t$e area o( &%blic ,or+s is not e4cl%!e! an!
neit$er is it reserve! (or t$e National Government. More
im&ortantl' Congress itsel( t$ro%g$ -.#. 85C0 trans(erre!
an! !evolve! t$e a!ministrative an! (iscal management o(
&%blic ,or+s an! (%n!s (or &%blic ,or+s to t$e #-G. @nless
a&&rove! b' t$e -egional #ssembl' no &%blic ,or+s (%n!s
allocate! b' t$e central government or national government
(or t$e -egional Government or allocate! b' t$e -egional
Government (rom its o,n reven%es ma' be !isb%rse!
!istrib%te! realigne! or %se! in an' manner.
2$e aim o( t$e Constit%tion is to e4ten! to t$e a%tonomo%s
&eo&les t$e &eo&le o( M%slim Min!anao in t$is case t$e
rig$t to sel(D!eterminationSa rig$t to c$oose t$eir o,n &at$
o( !evelo&mentA t$e rig$t to !etermine t$e &olitical c%lt%ral
an! economic content o( t$eir !evelo&ment &at$ ,it$in t$e
(rame,or+ o( t$e sovereignt' an! territorial integrit' o( t$e
=$ili&&ine -e&%blic.85 )el(D!etermination re(ers to t$e nee!
(or a &olitical str%ct%re t$at ,ill res&ect t$e a%tonomo%s
&eo&lesH %ni.%eness an! grant t$em s%((icient room (or sel(D
e4&ression an! sel(Dconstr%ction.
*n trea!ing t$eir c$osen &at$ o( !evelo&ment t$e M%slims
in Min!anao are to be given (ree!om an! in!e&en!ence
,it$ minim%m inter(erence (rom t$e National Government.
2$is necessaril' incl%!es t$e (ree!om to !eci!e on b%il!
s%&ervise an! maintain t$e &%blic ,or+s an! in(rastr%ct%re
10G
&ro9ects ,it$in t$e a%tonomo%s region. 2$e !evol%tion o(
t$e &o,ers an! (%nctions o( t$e D=6H in t$e #-MM an!
trans(er o( t$e a!ministrative an! (iscal management o(
&%blic ,or+s an! (%n!s to t$e #-G are meant to be tr%e
meaning(%l an! %n(ettere!. 2$is %nassailable concl%sion is
gro%n!e! on a clear consens%s reac$e! at t$e
Constit%tional Commission an! rati(ie! b' t$e entire Fili&ino
electorate on t$e centralit' o( !ecentraliBation o( &o,er as
t$e a&&ro&riate vessel o( !eliverance (or M%slim Fili&inos
an! t$e %ltimate %nit' o( M%slims an! C$ristians in t$is
co%ntr'.
6it$ -.#. 8888 $o,ever t$is (ree!om is ta+en a,a' an!
t$e National Government ta+es control again. 2$e $an!s
once more o( t$e a%tonomo%s &eo&les are reine! in an!
tie! %&.
2$e c$allenge! la, creates an o((ice ,it$ (%nctions an!
&o,ers ,$ic$ b' virt%e o( 3.O. 0/G $ave been &revio%sl'
!evolve! to t$e D=6HD#-MM First 3ngineering District in
Lanao !el )%r. 3.O. 0/G clearl' or!ains t$e trans(er o( t$e
control an! s%&ervision o( t$e o((ices o( t$e D=6H ,it$in t$e
#-MM incl%!ing t$eir (%nctions &o,ers an! res&onsibilities
&ersonnel e.%i&ment &ro&erties an! b%!gets to t$e #-G.
#mong its ot$er (%nctions t$e D=6HD#-MM %n!er t$e
control o( t$e -egional Government s$all be res&onsible (or
$ig$,a's (loo! control an! ,ater reso%rce !evelo&ment
s'stems an! ot$er &%blic ,or+s ,it$in t$e #-MM. *ts sco&e
o( &o,er incl%!es t$e &lanning !esign constr%ction an!
s%&ervision o( &%blic ,or+s. #ccor!ing to -.#. 85C0 t$e
reac$ o( t$e -egional Government enables it to a&&ro&riate
manage an! !isb%rse all &%blic ,or+ (%n!s allocate! (or t$e
region b' t$e central government.
2$e %se o( t$e ,or! "&o,ers" in 3.O. 0/G mani(ests an
%nmista+able case o( !evol%tion. *n t$is regar! it is not
amiss to cite O&inion No. 1/5 ). 18818/ o( t$e )ecretar' o(
7%stice on ,$et$er t$e national !e&artments or t$eir
co%nter&art !e&artments in t$e #-G are res&onsible (or
im&lementation o( roa!s r%ral ,ater s%&&l' $ealt$
e!%cation ,omen in !evelo&ment agric%lt%ral e4tension
an! ,aters$e! management. -e(erring to )ection / #rticle
K o( -.#. G710 ,$ic$ en%merates t$e &o,ers o( t$e #-G $e
states:*t is clear (rom t$e (oregoing &rovision o( la, t$at
e4ce&t (or t$e areas o( e4ec%tive &o,er mentione! t$erein
all ot$er s%c$ areas s$all be e4ercise! b' t$e #%tonomo%s
-egional Government ;"#-G"< o( t$e #%tonomo%s -egion in
M%slim Min!anao. *t is note! t$at &rograms relative to
in(rastr%ct%re (acilities $ealt$ e!%cation ,omen in
!evelo&ment agric%lt%ral e4tension an! ,aters$e!
management !o not (all %n!er an' o( t$e e4em&te! areas
liste! in t$e above.%ote! &rovision o( la,. 2$%s t$e
inevitable concl%sion is t$at all t$ese s&$eres o( e4ec%tive
res&onsibilit' $ave been trans(erre! to t$e #-G.
-ein(orcing t$e above vie, are t$e vario%s e4ec%tive or!ers
iss%e! b' t$e =resi!ent &rovi!ing (or t$e !evol%tion o( t$e
&o,ers an! (%nctions o( s&eci(ie! e4ec%tive !e&artments o(
t$e National Government to t$e #-G. 2$ese are 3.O. Nos.
0/C ;De&artment o( Labor an! 3m&lo'ment Local
Government 2o%rism 3nvironment an! Nat%ral -eso%rces
)ocial 6el(are an! Develo&ment an! )cience an!
2ec$nolog'< 0/G ;De&artment o( =%blic 6or+s an!
Hig$,a's< 0C8 ;De&artment o( 3!%cation C%lt%re an!
)&orts< an! 0G5 ;De&artment o( #gric%lt%re<. 2$e e4ec%tion
o( &ro9ects on in(rastr%ct%re e!%cation ,omen agric%lt%ral
e4tension an! ,aters$e! management ,it$in t$e
#%tonomo%s -egion o( M%slim Min!anao normall' (all ,it$in
t$e res&onsibilit' o( one o( t$e a(orementione! e4ec%tive
!e&artments o( t$e National Government b%t b' virt%e o(
t$e a(orestate! 3Os s%c$ res&onsibilit' $as been
trans(erre! to t$e #-G.
3.O. 0/G ,as iss%e! to im&lement t$e &rovisions o( t$e (irst
#-MM Organic #ct -.#. G710St$e vali!it' o( ,$ic$ t$is
Co%rt %&$el! in t$e case o( #bbas v. Commission on
3lections.81 *n )ection 0 #rticle JK*** o( sai! #ct "central
government or national government o((ices an! agencies in
t$e a%tonomo%s region ,$ic$ are not e4cl%!e! %n!er
)ection 1 #rticle *K80 o( t$is Organic #ct s$all be &lace!
%n!er t$e control an! s%&ervision o( t$e -egional
Government &%rs%ant to a sc$e!%le &rescribe! b' t$e
oversig$t committee."
3vi!entl' t$e intention is to ce!e some i( not most o( t$e
&o,ers o( t$e national government to t$e a%tonomo%s
government in or!er to e((ect%ate a veritable a%tonom'.
2$e contin%e! en(orcement o( -.#. 8888 t$ere(ore r%ns
a(o%l o( t$e #-MM Organic #cts an! res%lts in t$e recall o(
&o,ers ,$ic$ $ave &revio%sl' been $an!e! over. 2$is
107
s$o%l! not be sanctione! else,ise t$e Organic #ctsH !esire
(or greater a%tonom' (or t$e #-MM in accor!ance ,it$ t$e
Constit%tion ,o%l! be .%elle!. *t bears stressing t$at
national la,s are s%b9ect to t$e Constit%tion one o( ,$ose
state &olicies is to ens%re t$e a%tonom' o( a%tonomo%s
regions. ;)ection /C #rticle ** o( t$e 1887 Constit%tion<
-.#. 8888 $as ma!e t$e D=6HD#-MM e((ete an! ren!ere!
regional a%tonom' ill%sor' ,it$ res&ect to in(rastr%ct%re
&ro9ects. 2$e Congressional -ecor! s$o,s on t$e ot$er
$an! t$at t$e "lac+ o( an im&lementing an! monitoring
bo!' ,it$in t$e area" $as $in!ere! t$e s&ee!'
im&lementation o( in(rastr%ct%re &ro9ects.8C #&&arentl' in
t$e legislat%reHs estimation t$e e4isting D=6HD#-MM
engineering !istricts (aile! to meas%re %& to t$e tas+. B%t i(
it ,as in!ee! t$e case t$e &roblem co%l! not be solve!
t$ro%g$ t$e sim&le legislative creation o( an incongr%o%s
engineering !istrict (or t$e central government in t$e #-MM.
#s it ,as Ho%se Bill No. 88C ,$ic$ %ltimatel' became -.#.
8888 ,as &asse! in recor! time on secon! rea!ing ;not
more t$an 15 min%tes< absol%tel' ,it$o%t t$e %s%al
s&onsors$i& s&eec$ an! !ebates.8G 2$e &reci&itate s&ee!
,$ic$ c$aracteriBe! t$e &assage o( -.#. 8888 is !i((ic%lt to
com&re$en! since -.#. 8888 co%l! $ave res%lte! in t$e
amen!ment o( t$e (irst #-MM Organic #ct an! t$ere(ore
co%l! not ta+e e((ect ,it$o%t (irst being rati(ie! in a
&lebiscite. 6$at is more ba((ling is t$at in Marc$ /551 or
barel' t,o ;/< mont$s a(ter it enacte! -.#. 8888 in 7an%ar'
/551 Congress &asse! -.#. 85C0 t$e secon! #-MM
Organic #ct ,$ere it rea((irme! t$e !evol%tion o( t$e D=6H
in #-MM incl%!ing Lanao !el )%r an! Mara,i Cit' to t$e
-egional Government an! e((ectivel' re&eale! -.#. 8888.
/. 6ON DO 118 is constit%tional.
D=6H De&artment Or!er No. 118: D.O. 118 creating t$e
Mara,i )%bDDistrict 3ngineering O((ice ,$ic$ $as 9%ris!iction
over in(rastr%ct%re &ro9ects ,it$in Mara,i Cit' an! Lanao
!el )%r is violative o( t$e &rovisions o( 3.O. 0/G. 2$e
34ec%tive Or!er ,as iss%e! &%rs%ant to -.#. G710S,$ic$
initiate! t$e creation o( t$e constit%tionall'D man!ate!
a%tonomo%s region87 an! ,$ic$ !e(ine! t$e basic str%ct%re
o( t$e a%tonomo%s government.88 3.O. 0/G so%g$t to
im&lement t$e trans(er o( t$e control an! s%&ervision o( t$e
D=6H ,it$in t$e #-MM to t$e #%tonomo%s -egional
Government. *n &artic%lar it i!enti(ie! (o%r ;0< District
3ngineering O((ices in eac$ o( t$e (o%r ;0< &rovinces
namel': Lanao !el )%r Mag%in!anao )%l% an! 2a,iD2a,i.88
#ccor!ingl' t$e First 3ngineering District o( t$e D=6HD
#-MM in Lanao !el )%r $as 9%ris!iction over t$e &%blic ,or+s
,it$in t$e &rovince.
2$e o((ice create! %n!er D.O. 118 $aving essentiall' t$e
same &o,ers is a !%&lication o( t$e D=6HD#-MM First
3ngineering District in Lanao !el )%r (orme! %n!er t$e aegis
o( 3.O. 0/G. 2$e !e&artment or!er in e((ect ta+es bac+
&o,ers ,$ic$ $ave been &revio%sl' !evolve! %n!er t$e sai!
e4ec%tive or!er. D.O. 118 r%ns co%nter to t$e &rovisions o(
3.O. 0/G. 2$e D=6HHs or!er li+e s&ring ,ater cannot rise
$ig$er t$an its so%rce o( &o,erSt$e 34ec%tive.
3.O. No. 1/0 %&on ,$ic$ D.O. 118 is base! is a general la,
reorganiBing t$e Ministr' o( =%blic 6or+s an! Hig$,a's
,$ile 3.O. 0/G is a s&ecial la, trans(erring t$e control an!
s%&ervision o( t$e D=6H o((ices ,it$in #-MM to t$e
#%tonomo%s -egional Government. 2$e latter stat%te
s&eci(icall' a&&lies to D=6HD#-MM o((ices. 3.O. 1/0 s$o%l!
t$ere(ore give ,a' to 3.O. 0/G in t$e instant case.
*n an' event t$e #-MM Organic #cts an! t$eir rati(ication in
a &lebiscite in e((ect s%&erse!e! 3.O. 1/0. *n case o( an
irreconcilable con(lict bet,een t,o la,s o( !i((erent
vintages t$e later enactment &revails beca%se it is t$e later
legislative ,ill. F%rt$er in its re&ealing cla%se -.#. 85C0
states t$at "all la,s !ecrees or!ers r%les an! reg%lations
an! ot$er iss%ances or &arts t$ereo( ,$ic$ are inconsistent
,it$ t$is Organic #ct are $ereb' re&eale! or mo!i(ie!
accor!ingl'."81 6it$ t$e re&eal o( 3.O. 1/0 ,$ic$ is t$e
basis o( D.O. 118 it necessaril' (ollo,s t$at D.O. 118 ,as
also ren!ere! (%nct%s o((icio b' t$e #-MM Organic #cts.
Abbas v. COM%L%C
Facts: 2$e &resent controvers' relates to t$e &lebiscite in 11
&rovinces an! nine 8 cities in Min!anao an! =ala,an in
im&lementation o( -# G710 "#n #ct =rovi!ing (or an Organic #ct
(or t$e #-MM." 2$ese consoli!ate! &etitions &ra' t$at t$e Co%rt:
;1< en9oin t$e Commission on 3lections ;COM3L3C< (rom con!%cting
t$e &lebiscite an! t$e )ecretar' o( B%!get an! Management (rom
releasing (%n!s to t$e COM3L3C (or t$at &%r&oseA an! ;/< !eclare
108
-.#. No. G710 or &arts t$ereo( %nconstit%tional. *n 1887 a ne,
Constit%tion ,as rati(ie! ,$ic$ t$e (or t$e (irst time &rovi!e! (or
regional a%tonom' #rticle J section 1C o( t$e c$arter &rovi!es
t$at "UtV$ere s$all be create! a%tonomo%s regions in M%slim
Min!anao an! in t$e Cor!illeras consisting o( &rovinces cities
m%nici&alities an! geogra&$ical areas s$aring common an!
!istinctive $istorical an! c%lt%ral $eritage economic an! social
str%ct%res an! ot$er relevant c$aracteristics ,it$in t$e (rame,or+
o( t$is Constit%tion an! t$e national sovereignt' as ,ell as
territorial integrit' o( t$e -e&%blic o( t$e =$ili&&ines. =%rs%ant to
t$e constit%tional man!ate -.#. No. G710 ,as enacte! an! signe!
into la, on #%g%st 1 1888.
*ss%es: 1. 6ON certain &rovisions o( -.#. No. G710 con(lict ,it$ t$e
&rovisions o( t$e 2ri&oli #greement.
*n t$e (irst &lace it is no, t$e Constit%tion itsel( t$at
&rovi!es (or t$e creation o( an a%tonomo%s region in M%slim
Min!anao. 2$e stan!ar! (or an' in.%ir' into t$e vali!it' o(
-.#. No. G710 ,o%l! t$ere(ore be ,$at is so &rovi!e! in t$e
Constit%tion. 2$%s an' con(lict bet,een t$e &rovisions o(
-.#. No. G710 an! t$e &rovisions o( t$e 2ri&oli #greement
,ill not $ave t$e e((ect o( en9oining t$e im&lementation o(
t$e Organic #ct. #ss%ming (or t$e sa+e o( arg%ment t$at t$e
2ri&oli #greement is a bin!ing treat' or international
agreement it ,o%l! t$en constit%te &art o( t$e la, o( t$e
lan!. B%t as internal la, it ,o%l! not be s%&erior to -.#. No.
G710 an enactment o( t$e Congress o( t$e =$ili&&ines
rat$er it ,o%l! be in t$e same class as t$e latter. 2$%s i( at
all -.#. No. G710 ,o%l! be amen!ator' o( t$e 2ri&oli
#greement being a s%bse.%ent la,. Onl' a !etermination
b' t$is Co%rt t$at -.#. No. G710 contravene! t$e
Constit%tion ,o%l! res%lt in t$e granting o( t$e relie(s
so%g$t.
/. 6ON ma9orit' re(ers to a ma9orit' o( t$e total votes cast in
t$e &lebiscite in all t$e constit%ent %nits or a ma9orit' in
eac$ o( t$e constit%ent %nits or bot$T
*( t$e (ramers o( t$e Constit%tion inten!e! to re.%ire
a&&roval b' a ma9orit' o( all t$e votes cast in t$e &lebiscite
t$e' ,o%l! $ave so in!icate!. 2$%s in #rticle JK*** section
/7 it is &rovi!e! t$at "UtV$is Constit%tion s$all ta+e e((ect
imme!iatel' %&on its rati(ication b' a ma9orit' o( t$e votes
cast in a &lebiscite $el! (or t$e &%r&ose ... Com&aring t$is
,it$ t$e &rovision on t$e creation o( t$e a%tonomo%s region
,$ic$ rea!s: 2$e creation o( t$e a%tonomo%s region s$all be
e((ective ,$en a&&rove! b' ma9orit' o( t$e votes cast b'
t$e constit%ent %nits in a &lebiscite calle! (or t$e &%r&ose
&rovi!e! t$at onl' &rovinces cities an! geogra&$ic areas
voting (avorabl' in s%c$ &lebiscite s$all be incl%!e! in t$e
a%tonomo%s region. U#rt. J sec 18 &ara /V.
*t ,ill rea!il' be seen t$at t$e creation o( t$e a%tonomo%s
region is ma!e to !e&en! not on t$e total ma9orit' vote in
t$e &lebiscite b%t on t$e ,ill o( t$e ma9orit' in eac$ o( t$e
constit%ent %nits an! t$e &roviso %n!erscores t$is. (or i( t$e
intention o( t$e (ramers o( t$e Constit%tion ,as to get t$e
ma9orit' o( t$e totalit' o( t$e votes cast t$e' co%l! $ave
sim&l' a!o&te! t$e same &$raseolog' as t$at %se! (or t$e
rati(ication o( t$e Constit%tion i.e. "t$e creation o( t$e
a%tonomo%s region s$all be e((ective ,$en a&&rove! b' a
ma9orit' o( t$e votes cast in a &lebiscite calle! (or t$e
&%r&ose."
*t is t$%s clear t$at ,$at is re.%ire! b' t$e Constit%tion is a
sim&le ma9orit' o( votes a&&roving t$e organic #ct in
in!ivi!%al constit%ent %nits an! not a !o%ble ma9orit' o( t$e
votes in all constit%ent %nits &%t toget$er as ,ell as in t$e
in!ivi!%al constit%ent %nits.
More im&ortantl' beca%se o( its categorical lang%age t$is
is also t$e sense in ,$ic$ t$e vote re.%irement in t$e
&lebiscite &rovi!e! %n!er #rticle J section 18 m%st $ave
been %n!erstoo! b' t$e &eo&le ,$en t$e' rati(ie! t$e
Constit%tion.
/. 6ON onl' t$ose areas ,$ic$ to $is vie, s$are common
an! !istinctive $istorical an! c%lt%ral $eritage economic
an! social str%ct%res an! ot$er relevant c$aracteristics
s$o%l! be &ro&erl' incl%!e! ,it$in t$e coverage o( t$e
a%tonomo%s region.
MamaDo insists t$at -.#. No. G710 is %nconstit%tional
beca%se onl' t$e &rovinces o( Basilan )%l% 2a,iD2a,i
Lanao !el )%r Lanao !el Norte an! Mag%in!anao an! t$e
cities o( Mara,i an! Cotabato an! not all o( t$e 11
&rovinces an! 8 cities incl%!e! in t$e Organic #ct &ossess
s%c$ conc%rrence in $istorical an! c%lt%ral $eritage an!
ot$er relevant c$aracteristics. B' incl%!ing areas ,$ic$ !o
not strictl' s$are t$e same c$aracteristic as t$e ot$ers
&etitioner claims t$at Congress $as e4&an!e! t$e sco&e o(
108
t$e a%tonomo%s region ,$ic$ t$e constit%tion itsel( $as
&rescribe! to be limite!.
=etitionerHs arg%ment is not tenable. 2$e Constit%tion la's
!o,n t$e stan!ar!s b' ,$ic$ Congress s$all !etermine
,$ic$ areas s$o%l! constit%te t$e a%tonomo%s region.
G%i!e! b' t$ese constit%tional criteria t$e ascertainment b'
Congress o( t$e areas t$at s$are common attrib%tes is
,it$in t$e e4cl%sive realm o( t$e legislat%reHs !iscretion.
#n' revie, o( t$is ascertainment ,o%l! $ave to go into t$e
,is!om o( t$e la,. 2$is t$e Co%rt cannot !o ,it$o%t !oing
violence to t$e se&aration o( governmental &o,ers.
/. 6ON ot$er nonDM%slim areas in Min!anao s$o%l! li+e,ise
be covere!.
He arg%es t$at since t$e Organic #ct covers several nonD
M%slim areas its sco&e s$o%l! be (%rt$er broa!ene! to
incl%!e t$e rest o( t$e nonDM%slim areas in Min!anao in
or!er (or t$e ot$er nonDM%slim areas !enies sai! areas
e.%al &rotection o( t$e la, an! t$ere(ore is violative o( t$e
Constit%tion.
=etitionerHs contention r%ns co%nter to t$e ver' same
constit%tional &rovision $e $a! earlier invo+e!. #n'
!etermination b' Congress o( ,$at areas in Min!anao
s$o%l! com&romise t$e a%tonomo%s region ta+ing into
acco%nt s$are! $istorical an! c%lt%ral $eritage economic
an! social str%ct%res an! ot$er relevant c$aracteristics
,o%l! necessaril' carr' ,it$ it t$e e4cl%sion o( ot$er areas.
#s earlier state! s%c$ !etermination b' Congress o( ,$ic$
areas s$o%l! be covere! b' t$e organic act (or t$e
a%tonomo%s region constit%tes a recogniBe! legislative
&rerogative ,$ose ,is!om ma' not be in.%ire! into b' t$is
Co%rt.
Moreover e.%al &rotection &ermits o( reasonable
classi(ication. 2$e Co%rt r%le! t$at once class ma' be
treate! !i((erentl' (rom anot$er ,$ere t$e gro%&ings are
base! on reasonable an! real !istinctions. 2$e g%arantee o(
e.%al &rotection is t$%s not in(ringe! in t$is case t$e
classi(ication $aving been ma!e b' Congress on t$e basis o(
s%bstantial !istinctions as set (ort$ b' t$e Constit%tion itsel(.
/. 6ON -# G710 violates t$e constit%tional g%arantee on (ree
e4ercise o( religion.
2$e ob9ection centers on a &rovision in t$e Organic #ct
,$ic$ man!ates t$at s$o%l! t$ere be an' con(lict bet,een
t$e M%slim Co!e U=.D. No. 1581V an! t$e 2ribal Co!e ;still be
enacte!< on t$e one $a! an! t$e national la, on t$e ot$er
$an! t$e )$ariHa$ co%rts create! %n!er t$e same #ct
s$o%l! a&&l' national la,. =etitioners maintain t$at t$e
islamic la, ;)$ariHa$< is !erive! (rom t$e Moran ,$ic$
ma+es it &art o( !ivine la,. 2$%s it ma' not be s%b9ecte! to
an' "manDma!e" national la,. =etitioner #bbas s%&&orts t$is
ob9ection b' en%merating &ossible instances o( con(lict
bet,een &rovisions o( t$e M%slim Co!e an! national la,
,$erein an a&&lication o( national la, mig$t be o((ensive to
a M%slimHs religio%s convictions.
#s ens$rine! in t$e Constit%tion 9%!icial &o,er incl%!es t$e
!%t' to settle act%al controversies involving rig$ts ,$ic$ are
legall' !eman!able an! en(orceable. *n t$e &resent case no
act%al controvers' bet,een real litigants e4ists. 2$ere are
no con(licting claims involving t$e a&&lication o( national
la, res%lting in an allege! violation o( religio%s (ree!om.
2$is being so t$e Co%rt in t$is case ma' not be calle! %&on
to resolve ,$at is merel' a &erceive! &otential con(lict
bet,een t$e &rovisions t$e M%slim Co!e an! national la,.
/. 6ON -# G710 grants t$e =resi!ent t$e &o,er to merge
regions.
6$at is re(erre! to in -.#. No. G710 is t$e merger o(
a!ministrative regions i.e. -egions * to J** an! t$e National
Ca&ital -egion ,$ic$ are mere gro%&ings o( contig%o%s
&rovinces (or a!ministrative &%r&oses #!ministrative
regions are not territorial an! &olitical s%b!ivisions li+e
&rovinces cities m%nici&alities an! baranga's. 6$ile t$e
&o,er to merge a!ministrative regions is not e4&ressl'
&rovi!e! (or in t$e Constit%tion it is a &o,er ,$ic$ $as
tra!itionall' been lo!ge! ,it$ t$e =resi!ent to (acilitate t$e
e4ercise o( t$e &o,er o( general s%&ervision over local
governments Usee #rt. J sec. 0 o( t$e Constit%tionV. 2$ere is
no con(lict bet,een t$e &o,er o( t$e =resi!ent to merge
a!ministrative regions ,it$ t$e constit%tional &rovision
re.%iring a &lebiscite in t$e merger o( local government
%nits beca%se t$e re.%irement o( a &lebiscite in a merger
e4&ressl' a&&lies onl' to &rovinces cities m%nici&alities or
baranga's not to a!ministrative regions.
/. 6ON &rovisions in t$e Organic #ct ,$ic$ create an
Oversig$t Committee to s%&ervise t$e trans(er to t$e
a%tonomo%s region o( t$e &o,ers a&&ro&riations an!
1C5
&ro&erties veste! %&on t$e regional government b' t$e
organic #ct are %nconstit%tional beca%se ,$ile t$e
Constit%tion states t$at t$e creation o( t$e a%tonomo%s
region s$all ta+e e((ect %&on a&&roval in a &lebiscite t$e
re.%irement o( organiBing an Oversig$t committee tas+e!
,it$ s%&ervising t$e trans(er o( &o,ers an! &ro&erties to t$e
regional government ,o%l! in e((ect !ela' t$e creation o(
t$e a%tonomo%s region.
@n!er t$e constit%tion t$e creation o( t$e a%tonomo%s
region $inges onl' on t$e res%lt o( t$e &lebiscite. i( t$e
Organic #ct is a&&rove! b' ma9orit' o( t$e votes cast b'
constit%ent %nits in t$e sc$e!%le! &lebiscite t$e creation o(
t$e a%tonomo%s region imme!iatel' ta+es e((ect. 2$e
.%estione! &rovisions in -.#. No. G710 re.%iring an
oversig$t Committee to s%&ervise t$e trans(er !o not
&rovi!e (or a !i((erent !ate o( e((ectivit'. M%c$ less ,o%l!
t$e organiBation o( t$e Oversig$t Committee ca%se an
im&e!iment to t$e o&eration o( t$e Organic #ct (or s%c$ is
evi!entl' aime! at e((ecting a smoot$ transition &erio! (or
t$e regional government. 2$e constit%tional ob9ection on
t$is &oint t$%s cannot be s%staine! as t$ere is no bases
t$ere(or.
Pani v. CA
Facts: Macac%a in $er ca&acit' as -egional Director an! as
)ecretar' o( t$e De&artment o( Healt$ o( t$e #%tonomo%s -egion
in M%slim Min!anao iss%e! a Memoran!%m !esignating =an!i ,$o
,as t$en DOHD#-MM #ssistant -egional )ecretar' as O((icerDinD
C$arge o( t$e *ntegrate! =rovincial Healt$ O((iceD#mai =a+&a+
General Hos&ital ;*=HOD#=GH< Lanao !el )%r. *n t$e same
Memoran!%m Macac%a !etaile! Dr. Mamasao )ani t$en t$e
&rovincial $ealt$ o((icer o( t$e *=HOD#=GH Lanao !el )%r to t$e
DOHD#-MM -egional O((ice in Cotabato Cit'. Lanao !el )%r
=rovincial Governor Ma$i! M. M%tilan iss%e! O((ice Or!er No. 57
!esignating )aber also as O((icerDinDC$arge o( t$e *=HOD#=GH
Lanao !el )%r. )ani (ile! a com&laint ,it$ t$e -egional 2rial Co%rt
o( Lanao !el )%r Branc$ 15 Mara,i Cit' c$allenging t$e #%g%st 8
1881 Memoran!%m trans(erring $im to t$e DOHD#-MM -egional
O((ice in Cotabato Cit' alleging t$at $e is t$e $ol!er o( a
&ermanent a&&ointment as &rovincial $ealt$ o((icer o( t$e *=HOD
#=GH Lanao !el )%r. )aber (ile! ,it$ t$e Co%rt o( #&&eals a
&etition (or .%o ,arranto ,it$ &ra'er (or &reliminar' in9%nction
claiming t$at $e is t$e la,(%ll' !esignate! O((icerDinDC$arge o( t$e
*=HOD#=GH Lanao !el )%r. =resi!ent -amos iss%e! 34ec%tive Or!er
No. 111 trans(erring t$e &o,ers an! (%nctions o( t$e De&artment o(
Healt$ in t$e region to t$e -egional Government o( t$e #-MM. On
November G 1881 Macac%a again in $er ca&acit' as DOHD#-MM
)ecretar'DDesignate iss%e! a Memoran!%m reiterating =an!i>s
!esignation as O((icerDinDC$arge o( t$e *=HOD#=GH Lanao !el )%r
as ,ell as )ani>s !etail to t$e -egional O((ice o( t$e DOHD#-MM in
Cotabato Cit' . C#: )aber is t$e la,(%ll' !esignate! O((icerDinD
C$arge o( t$e *=HOD#=GH Lanao !el )%r an! t$at Governor Ma$i!
M%tilan $as t$e &o,er an! a%t$orit' to a&&oint t$e &rovincial
$ealt$ o((icer. C# maintaine! t$at t$e Organic #ct o( 1888 an! t$e
#-MM Local Co!e co%l! not &revail over t$e LGC. C# inter&rete!
)ection 0C7 ;b< an! ;!< o( t$e #-MM Local Co!e to mean t$at it is
t$e #-MM -egional Governor an! not t$e =rovincial Governor ,$o
e4ercises a recommen!ator' &rerogative in t$e a&&ointment o( t$e
&rovincial $ealt$ o((icer.
*ss%es: 1. 6ON an inc%mbent &rovincial $ealt$ o((icer o( Lanao !el
)%r can be assigne! to anot$er &rovince an! i( so ,$o can or!er
s%c$ assignment.
/. 6$o can !esignate t$e O((icerDinDC$arge in t$e &rovincial
$ealt$ o((ice o( Lanao !el )%r D t$e =rovincial Governor or
t$e #-MM )ecretar' o( Healt$T
1. 6$o is em&o,ere! to a&&oint t$e &rovincial $ealt$ o((icer
o( Lanao !el )%r D t$e =rovincial Governor t$e -egional
Governor or t$e #-MM )ecretar' o( Healt$T
First =erio!: =rior to t$e Organic #ct o( 1888
2$e &rovincial $ealt$ o((ice ,as an agenc' o( t$e Ministr' o(
Healt$ an! t$e Minister o( Healt$ ,as t$e a&&ointing &o,er
o( &rovincial $ealt$ o((icers.
)econ! =erio!: #(ter t$e Organic #ct o( 1888
*t ,as not %ntil October /8 1881 ,$en t$en =resi!ent Fi!el
K. -amos iss%e! 34ec%tive Or!er No. 111 t$at t$e regional
o((ices o( t$e De&artment o( Healt$ in t$e #-MM ,ere
&lace! %n!er t$e s%&ervision an! control o( t$e -egional
Government. 34ec%tive Or!er No. 111 ,as t$e o&erative act
t$at act%all' trans(erre! t$e &o,ers an! (%nctions o( t$e
De&artment o( Healt$ toget$er ,it$ its regional &ersonnel
1C1
e.%i&ment &ro&erties an! b%!gets to t$e -egional
Government.
2$%s %ntil t$e e((ectivit' o( 34ec%tive Or!er No. 111 t$e
)ecretar' o( Healt$ o( t$e National Government contin%e!
to a&&oint &rovincial $ealt$ o((icers in t$e #-MM ,it$ t$e
a%t$orit' to assign a &rovincial $ealt$ o((icer to an'
&rovince ,it$in t$e region. 2$is ,as t$e state o( t$e la,
a(ter t$e &assage o( t$e Organic #ct o( 1888 %ntil t$e
e((ectivit' o( 34ec%tive Or!er No. 111.
2$ir! =erio!: #(ter t$e LGC o( 1881
@nli+e t$e 1880 LG@ Co!e t$e 1881 LG@ Co!e ma!e (or
t$e (irst time t$e &rovincial $ealt$ o((icers one o( t$e
o((icials o( t$e &rovincial government to be a&&ointe! b' t$e
&rovincial governor i( $is salar' came mainl' (rom &rovincial
(%n!s.
3ven a(ter t$e &assage o( t$e 1881 LG@ Co!e t$e )ecretar'
o( Healt$ contin%e! to be t$e a&&ointing &o,er o( &rovincial
$ealt$ o((icers ,$o remaine! national government o((icials.
2$e )ecretar' o( Healt$ also contin%e! to e4ercise t$e
a%t$orit' to assign &rovincial $ealt$ o((icers to an' &rovince
,it$in t$e region. 2$is sit%ation $o,ever ,as onl'
tem&orar' arising (rom t$e nee! (or a &$ase! trans(er o(
t$e &ersonnel e.%i&ment &ro&erties an! b%!gets o( t$e
De&artment o( Healt$ in t$e #-MM to t$e -egional
Government &%rs%ant to )ection 0 #rticle J*J o( t$e
Organic #ct o( 1888.
On October /8 1881 34ec%tive Or!er No. 111 ,as iss%e!
(inall' trans(erring t$e &o,ers an! (%nctions o( t$e
De&artment o( Healt$ in t$e a%tonomo%s region to t$e
-egional Government.
2$e !evolve! &o,ers %n!er t$e Organic #ct o( 1888 as
im&lemente! b' 34ec%tive Or!er No. 111 incl%!e! t$e
&o,er o( s%&ervision an! control over &rovincial $ealt$
o((icers as ,ell as t$e &o,er to a&&oint &rovincial $ealt$
o((icers. 2$e &o,er o( s%&ervision an! control &revio%sl'
e4ercise! b' t$e )ecretar' o( Healt$ carrie! ,it$ it t$e
a%t$orit' to assign &rovincial $ealt$ o((icers to an' &rovince
,it$in t$e region &%rs%ant to )ection 17 o( 34ec%tive Or!er
No. 118. #ssignment ,it$in a region o( &ersonnel a&&ointe!
to a region is an a!ministrative matter e4ercise! b' t$e
$ea! o( o((ice ,$o is veste! ,it$ t$e &o,er o( s%&ervision
an! control over t$e o((ice.
@&on t$e e((ectivit' o( 34ec%tive Or!er No. 111 t$e
a!ministrative a%t$orit' o( t$e )ecretar' o( Healt$ to assign
&rovincial $ealt$ o((icers to an' &rovince ,it$in a region ,as
trans(erre! to t$e #-MM )ecretar' o( Healt$ as t$e regional
co%nter&art o( t$e national )ecretar' o( Healt$. 2$is trans(er
o( a!ministrative a%t$orit' to t$e -egional )ecretar' ,as
essential to ins%re t$e contin%ation o( vital $ealt$ services
to resi!ents in t$e #-MM. On t$e ot$er $an! t$e &o,er to
a&&oint &rovincial $ealt$ o((icers &revio%sl' con(erre! b'
la, on t$e )ecretar' o( Healt$ ,as !evolve! to t$e
-egional Governor.
2$e &o,er to a&&oint &rovincial $ealt$ o((icers is one t$at
t$e -egional #ssembl' co%l! t$%s grant b' la, to t$e
-egional )ecretar' o( Healt$. Ho,ever t$e -egional
#ssembl' $as not enacte! a la, a%t$oriBing t$e -egional
)ecretar' o( Healt$ to a&&oint &rovincial $ealt$ o((icers.
)ince t$e &o,er to a&&oint m%st be e4&ressl' con(erre! b'
la, an! cannot be im&lie! (rom t$e &o,er o( s%&ervision
an! control t$is r%le! o%t t$e -egional )ecretar' o( Healt$
as t$e a&&ointing &o,er o( &rovincial $ealt$ o((icers.
)igni(icantl' t$e &o,er to a&&oint &rovincial $ealt$ o((icers
is not one o( t$e &o,ers trans(erre! to t$e -egional
)ecretar' o( Healt$ %n!er 34ec%tive Or!er No. 111. 2$ere
co%l! be no ga& or lac%na in t$e !evol%tion o( &o,ers (rom
t$e National Government to t$e -egional Government
beca%se t$e e4ercise o( t$ese &o,ers ,as essential to t$e
maintenance o( basic services (or t$e general ,el(are.
Fo%rt$ =erio!: #(ter t$e #-MM Local Co!e
@n!er t$e #-MM Local Co!e t$e &rovincial $ealt$ o((icer in
t$e #-MM &revio%sl' a regional o((icial $as also become a
&rovincial government o((icial catc$ing %& ,it$ t$e stat%s o(
&rovincial $ealt$ o((icers o%tsi!e o( t$e #-MM. 2$e -egional
Governor a&&oints t$e &rovincial $ealt$ o((icer (rom a list o(
t$ree recommen!ees o( t$e =rovincial Governor. 2$e #-MM
Local Co!e &rovi!es t$at t$e salar' o( t$e &rovincial $ealt$
o((icer s$all be &ai! (rom regional (%n!s.
2$e #-MM Local Co!e also states t$at i( t$e salar' o( t$e
&rovincial $ealt$ o((icer comes mainl' (rom &rovincial (%n!s
t$e =rovincial Governor is t$e a&&ointing &o,er. 2$e &o,er
o( t$e -egional Governor to a&&oint &rovincial o((icials
a&&lies onl' to &rovincial o((icials "&ai! b' regional (%n!s."
1C/
)ection 0C8 o( t$e #-MM Local Co!e vests in t$e =rovincial
Governor t$e &o,er to e4ercise s%&ervision an! control over
all &rovincial government o((icials. 2$e conversion o( t$e
&rovincial $ealt$ o((icer (rom a regional government o((icial
to a &rovincial government o((icial %n!er )ection 0C7 o( t$e
#-MM Local Co!e &lace! t$e &rovincial $ealt$ o((icer %n!er
t$e s%&ervision an! control o( t$e =rovincial Governor.
Conse.%entl' ,it$ t$e &assage o( t$e #-MM Local Co!e t$e
-egional )ecretar' o( Healt$ lost t$e a%t$orit' to assign
&rovincial $ealt$ o((icers to ot$er &rovinces ,it$in t$e
region.
2$e state o( t$e la, a(ter t$e enactment o( t$e #-MM Local
Co!e became more (avorable to =rovincial Governors at
least ,it$ res&ect to t$e a&&ointment an! assignment o(
&rovincial $ealt$ o((icers. 6$ile be(ore t$e a&&ointment o(
&rovincial $ealt$ o((icers ,as solel' t$e &rerogative o( t$e
-egional Governor no, a =rovincial Governor $as t$e &o,er
to recommen! t$ree nominees. 2$e -egional Governor can
a&&oint onl' (rom among t$e t$ree nominees o( t$e
=rovincial Governor even t$o%g$ t$e salar' o( t$e &rovincial
$ealt$ o((icer comes (rom regional (%n!s. Li+e,ise ,$ile
be(ore t$e -egional )ecretar' o( Healt$ co%l! assign
&rovincial $ealt$ o((icers to ot$er &rovinces ,it$in t$e
region t$is a%t$orit' o( t$e -egional )ecretar' cease! to
e4ist. )ince a &rovincial $ealt$ o((icer ,as no, a&&ointe! to
a s&eci(ic &rovince $e co%l! no longer be assigne! to
anot$er &rovince ,it$o%t $is consent. Moreover t$e
=rovincial Governor no, e4ercises s%&ervision an! control
over t$e &rovincial $ealt$ o((icer ,$o $as become a
&rovincial government o((icial. Finall' i( t$e &rovincial
government ass%mes &a'ment o( t$e salar' o( t$e
&rovincial $ealt$ o((icer t$en t$e =rovincial Governor
becomes t$e a&&ointing &o,er o( s%c$ &rovincial o((icial.
Fi(t$ =erio!: 2$e Organic #ct o( /551
2$e &assage o( t$e Organic #ct o( /551 means t$at t$e
&o,ers an! (%nctions o( a =rovincial Governor %n!er t$e
1881 LG@ Co!e are no, en9o'e! as a minim%m b' a
=rovincial Governor in t$e #-MM. 2$%s t$e =rovincial
Governor a&&oints t$e &rovincial $ealt$ o((icer i( t$e latter>s
salar' comes (rom &rovincial (%n!s. *( t$e &rovincial $ealt$
o((icer>s salar' comes mainl' (rom regional (%n!s t$en t$e
#-MM Local Co!e a&&lies in ,$ic$ case t$e -egional
Governor is t$e a&&ointing &o,er b%t $e m%st a&&oint onl'
(rom among t$e t$ree nominees o( t$e =rovincial Governor.
Moreover t$e =rovincial Governor e4ercises s%&ervision an!
control over t$e &rovincial $ealt$ o((icer beca%se t$e #-MM
Local Co!e $as classi(ie! $im as a &rovincial government
o((icial. 2$is is no, t$e &resent state o( t$e la, on t$e
a&&ointment o( &rovincial $ealt$ o((icers in t$e #-MM.
-e: )aber: Lanao !el )%r =rovincial Governor Ma$i! M.
M%tilan !esignate! )aber as O((icerDinDC$arge o( t$e *=HOD
#=GH Lanao !el )%r on )e&tember 1C 1881. On t$is !ate
t$e &rovincial $ealt$ o((icer o( Lanao !el )%r ,as still a
national government o((icial &ai! entirel' (rom national
(%n!s. 2$e &rovincial $ealt$ o((icer ,as still a&&ointe! b'
t$e national )ecretar' o( Healt$ to a region an! not to a
&rovince. 2$e )ecretar' o( Healt$ e4ercise! s%&ervision an!
control over t$e &rovincial $ealt$ o((icer. 2$e )ecretar' o(
Healt$ ,as also t$e o((icial a%t$oriBe! b' la, to assign t$e
&rovincial $ealt$ o((icer to an' &rovince ,it$in t$e region.
*n!is&%tabl' on )e&tember 1C 1881 =rovincial Governor
M%tilan $a! no &o,er to !esignate )aber as O((icerDinD
C$arge o( *=HOD#=GH Lanao !el )%r. Conse.%entl' t$e
!esignation o( )aber as s%c$ O((icerDinDC$arge is voi!.
2$e Co%rt o( #&&eals> reliance on )ection 078 o( t$e 1881
LG@ Co!e as =rovincial Governor M%tilan>s a%t$orit' to
a&&oint )aber is mis&lace!. )ection 078 o( t$e 1881 LG@
Co!e ,$ic$ &rovi!es t$at "U2V$e a&&ointment o( a $ealt$
o((icer s$all be man!ator' (or &rovincial cit' an! m%nici&al
governments " is not a grant o( &o,er to governors an!
ma'ors to a&&oint local $ealt$ o((icers. *t is sim&l' a
!irective t$at t$ose em&o,ere! to a&&oint local $ealt$
o((icers are man!ate! to !o so. *n s$ort t$e a&&ointment o(
local $ealt$ o((icers being essential (or &%blic services is a
man!ator' obligation on t$e &art o( t$ose veste! b' la,
,it$ t$e &o,er to a&&oint t$em.
-e: )ani: )ani ,as a&&ointe! &rovincial $ealt$ o((icer b'
t$en )ecretar' o( Healt$ #l(re!o -.#. BengBon on 7an%ar' 1
1888. )ani ,as a&&ointe! &rovincial $ealt$ o((icer in -egion
J** since at t$at time 34ec%tive Or!er No. 118 t$e c$arter o(
t$e De&artment o( Healt$ e4&ressl' state! t$at &rovincial
$ealt$ o((icers ,ere to be a&&ointe! to a region. 2$e
)ecretar' o( Healt$ %&on recommen!ation o( t$e -egional
1C1
Director co%l! assign &rovincial $ealt$ o((icers to an'
&rovince ,it$in t$e region.
Conse.%entl' )ani cannot claim an' sec%rit' o( ten%re as
&rovincial $ealt$ o((icer o( Lanao !el )%r beca%se $e ,as
never a&&ointe! to t$at o((ice.
Macac%a in $er ca&acit' as -egional Director an! #-MM
)ecretar' o( Healt$ !etaile! )ani to t$e DOHD#-MM
-egional O((ice in Cotabato Cit' on #%g%st 8 1881. #s o(
t$at !ate t$e &o,ers an! (%nctions o( t$e De&artment o(
Healt$ ,ere not 'et trans(erre! to t$e -egional
Government an! t$e )ecretar' o( Healt$ o( t$e National
Government still e4ercise! t$e &o,er to assign t$e
&rovincial $ealt$ o((icers in t$e #-MM. Conse.%entl' t$e
#%g%st 8 1881 !irective o( Macac%a !etailing or assigning
)ani to t$e -egional O((ice in Cotabato Cit' is voi!.
2$e secon! !etail or assignment o( )ani to t$e -egional
O((ice in Cotabato iss%e! on November G 1881 is ,it$in
t$e a%t$orit' o( Macac%a as -egional )ecretar' o( Healt$.
2$%s t$e secon! !etail o( )ani is vali!.
-e: =an!i: 2$e !esignation !ate! #%g%st 8 1881 is voi!
since t$e -egional )ecretar' at t$at time !i! not 'et
e4ercise s%&ervision an! control over t$e &rovincial $ealt$
o((ices o( t$e #-MM. Ho,ever t$e !esignation o( =an!i on
November G 1881 is vali! since at t$at time 34ec%tive
Or!er No. 111 $a! alrea!' been iss%e! vesting in t$e
-egional )ecretar' o( Healt$ s%&ervision an! control over all
(%nctions an! activities o( t$e De&artment o( Healt$ in t$e
#-MM. 2$e !esignation o( =an!i $o,ever ,$ile vali! is onl'
tem&orar' in nat%re goo! %ntil a ne, !esignation or a
&ermanent a&&ointment is ma!e.
#s -egional )ecretar' o( Healt$ Macac%a ,as as o(
November G 1881 t$e o((icial veste! b' la, to e4ercise
s%&ervision an! control over all &rovincial $ealt$ o((ices in
t$e #-MM. 2$e -egional )ecretar' b' virt%e o( 34ec%tive
Or!er No. 111 ass%me! t$e a!ministrative &o,ers an!
(%nctions o( t$e )ecretar' o( Healt$ o( t$e National
Government ,it$ res&ect to &rovincial $ealt$ o((ices ,it$in
t$e #-MM. 2$e o((icial e4ercising s%&ervision an! control
over an o((ice $as t$e a!ministrative a%t$orit' to !esignate
in t$e interest o( &%blic service an O((icerDinDC$arge i( t$e
o((ice becomes vacant. Macac%a t$ere(ore $a! t$e
a%t$orit' on November G 1881 to !esignate an O((icerDinD
C$arge in t$e &rovincial $ealt$ o((ice o( Lanao !el )%r
&en!ing t$e a&&ointment o( t$e &ermanent &rovincial $ealt$
o((icer. #(ter t$e e((ectivit' o( t$e #-MM Local Co!e t$e
-egional )ecretar' o( Healt$ lost t$e a%t$orit' to ma+e s%c$
a !esignation.
@n!er t$e #-MM Local Co!e t$e &rovincial $ealt$ o((icer
became (or t$e (irst an o((icial o( t$e &rovincial government
even t$o%g$ $e is a&&ointe! b' t$e -egional Governor an!
!ra,s $is salar' (rom regional (%n!s. 2$e #-MM Local Co!e
vests in t$e =rovincial Governor t$e &o,er to "e4ercise
general s%&ervision an! control over all &rograms &ro9ects
services an! activities o( t$e &rovincial government." @&on
t$e e((ectivit' o( t$e #-MM Local Co!e t$e &o,er o(
s%&ervision an! control over t$e &rovincial $ealt$ o((icer
&asse! (rom t$e -egional )ecretar' to t$e =rovincial
Governor. From t$en on t$e =rovincial Governor began to
e4ercise t$e a!ministrative a%t$orit' to !esignate an
O((icerDinDC$arge in t$e &rovincial $ealt$ o((ice &en!ing t$e
a&&ointment o( a &ermanent &rovincial $ealt$ o((icer.
Orillo v. COM%L%C
Facts: 2$e &eo&le o( t$e &rovinces o( Beng%et Mo%ntain =rovince
*(%gao #bra an! Malinga #&a'ao an! t$e cit' o( Bag%io cast t$eir
votes in a &lebiscite $el! &%rs%ant to -# G7GG. 2$e COM3L3C
res%lts s$o,e! t$at t$e creation o( t$e -egion ,as a&&rove! onl'
b' a ma9orit' o( C888 votes in onl' t$e *(%gao =rovince an! ,as
over,$elmingl' re9ecte! b' 108G7G votes in t$e rest o( t$e
&rovinces an! cit' abovementione!. )ec o( 7%stice: consi!ering t$e
&roviso t$at onl' t$e &rovinces an! cit' voting (avorabl' s$all be
incl%!e! in t$e C#- t$e &rovince o( *(%gao being t$e onl' &rovince
,$ic$ vote! (avorabl' legall' constit%tes t$e C#-. #s a res%lt o(
t$is Congress enacte! -# G8G1 ,$ic$ set t$e elections in t$e C#-.
Or!illo et al t$en (ile! a &etition ,it$ t$e COM3L3C to !eclare t$e
nonDrati(ication o( t$e Organic #ct (or t$e -egion. 2$e &resi!ent
iss%e! #O 1G5 !eclaring t$at t$e Cor!illera 34ec%tive Boar! an!
Cor!illera -egional #ssembl' an! ot$er o((ices create! %n!er
3O//5 are abolis$e! in vie, o( t$e rati(ication o( t$e Organic #ct.
2$e &etitioners maintain t$at t$ere can be no vali! C#- as t$e
1C0
Constit%tion an! -# G7GG re.%ire t$at t$e sai! region be com&ose!
o( more t$an one constit%ent %nit. 2$e' &ra' t$at t$e co%rt !eclare
COM3L3C -es. No. //C8 #O 1G5 an! -#G8G1 as n%ll an! voi! an!
restrain t$e res&on!ents (rom im&lementing t$e same. 2$e' also
&ra' t$at it !eclare 3O //5 constit%ting t$e C3B an! t$e C-# an!
ot$er o((ices to be still in (orce an! e((ect %ntil anot$er organic la,
(or t$e #%tonomo%s -egion s$all $ave been enacte! an! !%l'
rati(ie!.
*ss%e: 6ON t$e &rovince o( *(%gao being t$e onl' &rovince ,$ic$
vote! (avorabl' (or t$e creation o( t$e C#- can alone legall' an!
vali!l' constit%te s%c$ region. NO.
#rt. J )ec. 1C o( 1887 Constit%tion: 2$ere s$all be create!
a%tonomo%s regions in M%slim Min!anao an! in t$e
Cor!illera consisting o( &rovinces cities m%nici&alities an!
geogra&$ical areas s$aring common an! !istinctive
$istorical an! c%lt%ral $eritage economic an! social
str%ct%res an! ot$er relevant c$aracteristics ,it$in t$e
(rame,or+ o( t$is Constit%tion an! t$e national sovereignt'
as ,ell as territorial integrit' o( t$e -e&%blic o( t$e
=$ili&&ines.
2$e term EregionF %se! in its or!inar' sense means t,o or
more &rovinces. 2$is is s%&&orte! b' t$e (act t$at t$e 11
regions into ,$ic$ t$e =$ili&&ines is !ivi!e! (or
a!ministrative &%r&oses are gro%&ings o( contig%o%s
&rovinces. *(%gao is a &rovince b' itsel(. 2o become &art o(
a region it m%st 9oin ot$er &rovinces cities m%nici&alities
an! geogra&$ical areas.
-# G7GG s$o,s t$at Congress never inten!e! t$at a single
&rovince ma' constit%te t$e a%tonomo%s region. Ot$er,ise
,e ,o%l! be (ace! ,it$ t$e abs%r! sit%ation o( $aving t,o
sets o( &rovincial o((icials an! anot$er set o( regional
o((icials e4ercising t$eir e4ec%tive an! legislative &o,ers
over e4actl' t$e same small area. )%c$ ,ill res%lt in an
a,+,ar! &re!icament ,$ere t$ere ,ill be t,o legislative
bo!ies: t$e Cor!illera #ssembl' an! t$e )angg%niang
=anlala,igan e4ercising t$eir legislative &o,ers over t$e
&rovince o( *(%gao.
-# G7GG &rovi!es (or a -egional =lanning an!
Develo&mental Boar! ,$ic$ $as a &rovincial co%nter&art
t$e =rovincial =lanning an! Develo&mental Coor!inator. *( it
ta+es onl' one &erson in t$e &rovincial level to &er(orm s%c$
(%nctions ,$ile it ta+es an entire boar! to &er(orm t$e same
in t$e regional level it co%l! onl' mean t$at a larger area
m%st be covere! at t$e regional level. 2$e la, also &rovi!es
an allocation (or 15M=$& (or its initial organiBational
re.%irements. )%c$ cannot be constr%e! as (%n!ing onl' a
lone an! small &rovince. Moreover t$e &rovince o( *(%gao
ma+es %& onl' 11Y o( t$e total &o&%lation o( t$e areas
,$ic$ ,ere en%merate! in t$e la,.
2$is case m%st be !isting%is$e! (rom t$e #bbas case ,$ic$
lai! !o,n t$e r%le on t$e meaning o( ma9orit': ,$at is
re.%ire! b' t$e Constit%tion is a sim&le ma9orit' o( votes
a&&roving t$e Organic #ct in in!ivi!%al constit%ent %nits an!
not a !o%ble ma9orit' o( t$e votes in all constit%ent %nits &%t
toget$er as ,ell as t$e in!ivi!%al constit%ent %nits. 2$ere is
not$ing in t$e #bbas case t$at !eals ,it$ t$e iss%e on
,$et$er an a%tonomo%s region co%l! e4ist !es&ite t$e (act
t$at onl' one &rovince or cit' is to constit%te it.
Corillera Broa Coalition v. COA /supra1
MM*A v. Bel;Air /supra1
MM*A v. Garin
Facts: Dante O. Garin ,as iss%e! a tra((ic violation recei&t ;2K-< (or
&ar+ing illegall' along Gan!ara )treet Binon!o Manila. His !riverHs
license ,as also con(iscate!. )$ortl' be(ore t$e e4&iration o( t$e
2K-Hs vali!it' t$e Garin a!!resse! a letter to t$en MMD# C$airman
Oreta re.%esting t$e ret%rn o( $is !riverHs license an! e4&ressing
$is &re(erence (or $is case to be (ile! in co%rt. -eceiving no
imme!iate re&l' Garin (ile! t$e original com&laint ,it$ a&&lication
(or &reliminar' in9%nction conten!ing t$at in t$e absence o( an'
im&lementing r%les an! reg%lations )ec. C;(< o( -e&. #ct No. 78/0
grants t$e MMD# %nbri!le! !iscretion to !e&rive erring motorists o(
t$eir licenses &reDem&ting a 9%!icial !etermination o( t$e vali!it' o(
t$e !e&rivation t$ereb' violating t$e !%e &rocess cla%se o( t$e
Constit%tion. 2$e res&on!ent (%rt$er conten!e! t$at t$e &rovision
violates t$e constit%tional &ro$ibition against %n!%e !elegation o(
legislative a%t$orit' allo,ing as it !oes t$e MMD# to (i4 an!
im&ose %ns&eci(ie! X an! t$ere(ore %nlimite! D (ines an! ot$er
&enalties on erring motorists. *n s%&&ort o( $is a&&lication (or a ,rit
o( &reliminar' in9%nction Garin allege! t$at $e s%((ere! an!
1CC
contin%es to s%((er great an! irre&arable !amage beca%se o( t$e
!e&rivation o( $is license an! t$at absent an' im&lementing r%les
(rom t$e Metro Manila Co%ncil t$e 2K- an! t$e con(iscation o( $is
license $ave no legal basis. For its &art t$e MMD# re&resente! b'
t$e O((ice o( t$e )olicitor General &ointe! o%t t$at t$e &o,ers
grante! to it b' )ec. C;(< o( -# 78/0 are limite! to t$e (i4ing
collection an! im&osition o( (ines an! &enalties (or tra((ic violations
,$ic$ &o,ers are legislative an! e4ec%tive in nat%reA t$e 9%!iciar'
retains t$e rig$t to !etermine t$e vali!it' o( t$e &enalt' im&ose!.
*t (%rt$er arg%e! t$at t$e !octrine o( se&aration o( &o,ers !oes not
&recl%!e "a!mi4t%re" o( t$e t$ree &o,ers o( government in
a!ministrative agencies. 2$e MMD# also re(%te! GarinHs allegation
t$at t$e Metro Manila Co%ncil t$e governing boar! an! &olic'
ma+ing bo!' o( t$e &etitioner $as as 'et to (orm%late t$e
im&lementing r%les (or )ec. C;(< o( -e&. #ct No. 78/0 an! !irecte!
t$e co%rtHs attention to MMD# Memoran!%m Circ%lar No. 22D8CD551
!ate! 1C #&ril 188C. -es&on!ent Garin $o,ever .%estione! t$e
vali!it' o( MMD# Memoran!%m Circ%lar No. 22D8CD551 as $e
claims t$at it ,as &asse! b' t$e Metro Manila Co%ncil in t$e
absence o( a .%or%m. -2C: iss%e! a tem&orar' restraining or!er
e4ten!ing t$e vali!it' o( t$e 2K- as a tem&orar' !riverHs license (or
t,ent' more !a's. # &reliminar' man!ator' in9%nction ,as
grante! an! t$e MMD# ,as !irecte! to ret%rn t$e res&on!entHs
!riverHs license. -2C !ecision: a. 2$ere ,as in!ee! no .%or%m in
t$at First -eg%lar Meeting o( t$e MMD# Co%ncil $el! on Marc$ /1
188C $ence MMD# Memoran!%m Circ%lar No. 22D8CD551
a%t$oriBing con(iscation o( !riverHs licenses %&on iss%ance o( a 2K-
is voi! ab initio. b. 2$e s%mmar' con(iscation o( a !riverHs license
,it$o%t (irst giving t$e !river an o&&ort%nit' to be $ear!A !e&riving
$im o( a &ro&ert' rig$t ;!riverHs license< ,it$o%t D@3 =-OC3))A not
(illing ;sic< in Co%rt t$e com&laint o( s%&&ose! tra((ic in(raction
cannot be 9%sti(ie! b' an' legislation ;an! is< $ence
%nconstit%tional.
*ss%es: 1. 6ON a license to o&erate a motor ve$icle is a &rivilege
t$at t$e state ma' ,it$$ol! in t$e e4ercise o( its &olice &o,er. :3).
2$e &etitioner correctl' &oints o%t t$at a license to o&erate
a motor ve$icle is not a &ro&ert' rig$t b%t a &rivilege
grante! b' t$e state ,$ic$ ma' be s%s&en!e! or revo+e!
b' t$e state in t$e e4ercise o( its &olice &o,er in t$e
interest o( t$e &%blic sa(et' an! ,el(are s%b9ect to t$e
&roce!%ral !%e &rocess re.%irements.
)tate e4. -el. )%llivan: "t$e legislative &o,er to reg%late
travel over t$e $ig$,a's an! t$oro%g$(ares o( t$e state (or
t$e general ,el(are is e4tensive. *t ma' be e4ercise! in an'
reasonable manner to conserve t$e sa(et' o( travelers an!
&e!estrians. )ince motor ve$icles are instr%ments o(
&otential !anger t$eir registration an! t$e licensing o( t$eir
o&erators $ave been re.%ire! almost (rom t$eir (irst
a&&earance. 2$e rig$t to o&erate t$em in &%blic &laces is
not a nat%ral an! %nrestraine! rig$t b%t a &rivilege s%b9ect
to reasonable reg%lation %n!er t$e &olice &o,er in t$e
interest o( t$e &%blic sa(et' an! ,el(are. 2$e &o,er to
license im&orts (%rt$er &o,er to ,it$$ol! or to revo+e s%c$
license %&on noncom&liance ,it$ &rescribe! con!itions."
Common,ealt$ v. F%n+: "#%tomobiles are ve$icles o( great
s&ee! an! &o,er. 2$e %se o( t$em constit%tes an element
o( !anger to &ersons an! &ro&ert' %&on t$e $ig$,a's.
Care(%ll' o&erate! an a%tomobile is still a !angero%s
instr%mentalit' b%t ,$en o&erate! b' careless or
incom&etent &ersons it becomes an engine o( !estr%ction.
2$e Legislat%re in t$e e4ercise o( t$e &olice &o,er o( t$e
common,ealt$ not onl' ma' b%t m%st &rescribe $o, an!
b' ,$om motor ve$icles s$all be o&erate! on t$e $ig$,a's.
One o( t$e &rimar' &%r&oses o( a s'stem o( general
reg%lation o( t$e s%b9ect matter as $ere b' t$e Ke$icle
Co!e is to ins%re t$e com&etenc' o( t$e o&erator o( motor
ve$icles. )%c$ a general la, is mani(estl' !irecte! to t$e
&romotion o( &%blic sa(et' an! is ,ell ,it$in t$e &olice
&o,er."
2$e common t$rea! r%nning t$ro%g$ t$e cite! cases is t$at
it is t$e legislat%re in t$e e4ercise o( &olice &o,er ,$ic$
$as t$e &o,er an! res&onsibilit' to reg%late $o, an! b'
,$om motor ve$icles ma' be o&erate! on t$e state
$ig$,a's.
/. 6ON t$e MMD# is veste! ,it$ &olice &o,er. NO.
Metro Manila Develo&ment #%t$orit' v. BelD#ir Killage
#ssociation *nc. ,e categoricall' state! t$at -e&. #ct No.
78/0 !oes not grant t$e MMD# ,it$ &olice &o,er let alone
legislative &o,er an! t$at all its (%nctions are
a!ministrative in nat%re. 2racing t$e legislative $istor' o( -#
78/0 creating t$e MMD# ,e concl%!e! t$at t$e MMD# is
not a local government %nit or a &%blic cor&oration en!o,e!
1CG
,it$ legislative &o,er an! %nli+e its &re!ecessor t$e Metro
Manila Commission it $as no &o,er to enact or!inances (or
t$e ,el(are o( t$e comm%nit'. 2$%s in t$e absence o( an
or!inance (rom t$e Cit' o( Ma+ati its o,n or!er to o&en t$e
street ,as invali!.
=olice &o,er as an in$erent attrib%te o( sovereignt' is t$e
&o,er veste! b' t$e Constit%tion in t$e legislat%re to ma+e
or!ain an! establis$ all manner o( ,$olesome an!
reasonable la,s stat%tes an! or!inances eit$er ,it$
&enalties or ,it$o%t not re&%gnant to t$e Constit%tion as
t$e' s$all 9%!ge to be (or t$e goo! an! ,el(are o( t$e
common,ealt$ an! (or t$e s%b9ects o( t$e same. Having
been lo!ge! &rimaril' in t$e National Legislat%re it cannot
be e4ercise! b' an' gro%& or bo!' o( in!ivi!%als not
&ossessing legislative &o,er. 2$e National Legislat%re
$o,ever ma' !elegate t$is &o,er to t$e &resi!ent an!
a!ministrative boar!s as ,ell as t$e la,ma+ing bo!ies o(
m%nici&al cor&orations or local government %nits ;LG@s<.
Once !elegate! t$e agents can e4ercise onl' s%c$
legislative &o,ers as are con(erre! on t$em b' t$e national
la,ma+ing bo!'.
Congress !elegate! &olice &o,er to t$e LG@s in LGC. # local
government is a "&olitical s%b!ivision o( a nation or state
,$ic$ is constit%te! b' la, an! $as s%bstantial control o(
local a((airs." Local government %nits are t$e &rovinces
cities m%nici&alities an! baranga's ,$ic$ e4ercise &olice
&o,er t$ro%g$ t$eir res&ective legislative bo!ies.
Metro&olitan or Metro Manila is a bo!' com&ose! o( several
local government %nits. 6it$ t$e &assage o( -e&. #ct No.
78/0 in 188C Metro&olitan Manila ,as !eclare! as a
"s&ecial !evelo&ment an! a!ministrative region" an! t$e
a!ministration o( "metroD,i!e" basic services a((ecting t$e
region &lace! %n!er "a !evelo&ment a%t$orit'" re(erre! to
as t$e MMD#. 2$%s: t$e &o,ers o( t$e MMD# are limite! to
t$e (ollo,ing acts: (orm%lation coor!ination reg%lation
im&lementation &re&aration management monitoring
setting o( &olicies installation o( a s'stem an!
a!ministration. 2$ere is no s'llable in -. #. No. 78/0 t$at
grants t$e MMD# &olice &o,er let alone legislative &o,er.
3ven t$e Metro Manila Co%ncil $as not been !elegate! an'
legislative &o,er. @nli+e t$e legislative bo!ies o( t$e local
government %nits t$ere is no &rovision in -. #. No. 78/0
t$at em&o,ers t$e MMD# or its Co%ncil to "enact
or!inances a&&rove resol%tions an! a&&ro&riate (%n!s (or
t$e general ,el(are" o( t$e in$abitants o( Metro Manila. 2$e
MMD# is as terme! in t$e c$arter itsel( a "!evelo&ment
a%t$orit'." *t is an agenc' create! (or t$e &%r&ose o( la'ing
!o,n &olicies an! coor!inating ,it$ t$e vario%s national
government agencies &eo&leHs organiBations nonD
governmental organiBations an! t$e &rivate sector (or t$e
e((icient an! e4&e!itio%s !eliver' o( basic services in t$e
vast metro&olitan area.
Clearl' t$e MMD# is not a &olitical %nit o( government. 2$e
&o,er !elegate! to t$e MMD# is t$at given to t$e Metro
Manila Co%ncil to &rom%lgate a!ministrative r%les an!
reg%lations in t$e im&lementation o( t$e MMD#Hs (%nctions.
2$ere is no grant o( a%t$orit' to enact or!inances an!
reg%lations (or t$e general ,el(are o( t$e in$abitants o( t$e
metro&olis.
/. 6ON )ec. C;(< grants t$e MMD# ,it$ t$e !%t' to en(orce
e4isting tra((ic r%les an! reg%lations. :3).
)ection C o( -# 78/0 en%merates t$e "F%nctions an! =o,ers
o( t$e Metro Manila Develo&ment #%t$orit'." 2$e conteste!
cla%se in )ec. C;(< states t$at t$e &etitioner s$all "install an!
a!minister a single tic+eting s'stem (i4 im&ose an! collect
(ines an! &enalties (or all +in!s o( violations o( tra((ic r%les
an! reg%lations ,$et$er moving or nonmoving in nat%re
an! con(iscate an! s%s&en! or revo+e !riversH licenses in
t$e en(orcement o( s%c$ tra((ic la,s an! reg%lations t$e
&rovisions o( -# 011G an! =.D. No. 1G5C to t$e contrar'
not,it$stan!ing" an! t$at ";(<or t$is &%r&ose t$e #%t$orit'
s$all en(orce all tra((ic la,s an! reg%lations in Metro Manila
t$ro%g$ its tra((ic o&eration center an! ma' !e&%tiBe
members o( t$e =N= tra((ic en(orcers o( local government
%nits !%l' license! sec%rit' g%ar!s or members o( nonD
governmental organiBations to ,$om ma' be !elegate!
certain a%t$orit' s%b9ect to s%c$ con!itions an!
re.%irements as t$e #%t$orit' ma' im&ose."
2$%s ,$ere t$ere is a tra((ic la, or reg%lation vali!l'
enacte! b' t$e legislat%re or t$ose agencies to ,$om
legislative &o,ers $ave been !elegate! ;t$e Cit' o( Manila
in t$is case< t$e &etitioner is not &recl%!e! X an! in (act is
!%t'Dbo%n! X to con(iscate an! s%s&en! or revo+e !riversH
licenses in t$e e4ercise o( its man!ate o( trans&ort an!
1C7
tra((ic management as ,ell as t$e a!ministration an!
im&lementation o( all tra((ic en(orcement o&erations tra((ic
engineering services an! tra((ic e!%cation &rograms.
League o! Cities v. COM%L%C
Facts: 11t$ Congress: 11 bills converting 11 m%nici&alities into
cities ,ere enacte!. Ho,ever Congress !i! not act on bills
converting /0 ot$er m%nici&alities into cities. 1/t$ Congress: -#
8558 ,$ic$ amen!e! )ec. 0C5 o( t$e LGC b' increasing t$e ann%al
income re.%irement (or conversion o( a m%nici&alit' into a cit'
(rom =/5 million to =155 million ,as enacte!. 2$e rationale (or t$e
amen!ment ,as to restrain in t$e ,or!s o( )en. =imentel Et$e
ma! r%s$F o( m%nici&alities to convert into cities solel' to sec%re a
larger s$are in t$e *nternal -even%e #llotment !es&ite t$e (act t$at
t$e' are inca&able o( (iscal in!e&en!ence. #(ter t$e e((ectivit' o(
-# 8558 t$e Ho%se a!o&te! 7oint -esol%tion No. /8 ,$ic$ so%g$t
to e4em&t (rom t$e =155 million income re.%irement in -# 8558
t$e /0 m%nici&alities ,$ose cit'$oo! bills ,ere not a&&rove! in t$e
11t$ Congress. Ho,ever t$e 1/t$ Congress en!e! ,it$o%t t$e
)enate a&&roving 7oint -esol%tion No. /8.
11t$ Congress: 7- /8 ,as reDa!o&te! as 7- 1 an! ,as (or,ar!e! to
t$e )enate (or a&&roval. Ho,ever t$e )enate again (aile! to
a&&rove t$e 7oint -esol%tion. Follo,ing t$e a!vice o( )en.=imentel
1G m%nici&alities (ile! t$ro%g$ t$eir res&ective s&onsors in!ivi!%al
cit'$oo! bills. 2$e 1G cit'$oo! bills containe! a common &rovision
e4em&ting all t$e 1G m%nici&alities (rom t$e =155 million income
re.%irement in -# 8558. On // December /55G t$e Ho%se o(
-e&resentatives a&&rove! t$e cit'$oo! bills. 2$e )enate also
a&&rove! t$e cit'$oo! bills in Febr%ar' /557 e4ce&t t$at o( Naga
Ceb% ,$ic$ ,as &asse! on 7 7%ne /557. 2$e cit'$oo! bills la&se!
into la, ,it$o%t t$e =resi!ent>s signat%re. 2$e Cit'$oo! La,s !irect
1C8
t$e COM3L3C to $ol! &lebiscites to !etermine ,$et$er t$e voters in
eac$ res&on!ent m%nici&alit' a&&rove o( t$e conversion o( t$eir
m%nici&alit' into a cit'. =etitioners (ile! t$e &resent &etitions to
!eclare t$e Cit'$oo! La,s %nconstit%tional (or violation o( )ection
15 #rticle J o( t$e Constit%tion as ,ell as (or violation o( t$e e.%al
&rotection cla%se. =etitioners also lament t$at t$e ,$olesale
conversion o( m%nici&alities into cities ,ill re!%ce t$e s$are o(
e4isting cities in t$e *nternal -even%e #llotment beca%se more
cities ,ill s$are t$e same amo%nt o( internal reven%e set asi!e (or
all cities %n!er )ection /8C o( t$e LGC.
*ss%es: 1. 6ON -# 8558 violates t$e &rinci&le o( nonDretroactivit'.
NO
Congress &asse! t$e Cit'$oo! La,s long a(ter t$e e((ectivit'
o( -# 8558. -# 8558 became e((ective on 15 7%ne /551 or
!%ring t$e 11t$ Congress. 2$e 11t$ Congress &asse! in
December /55G t$e cit'$oo! bills ,$ic$ became la, onl' in
/557. 2$%s res&on!ent m%nici&alities cannot invo+e t$e
&rinci&le o( nonDretroactivit' o( la,s. 2$is basic r%le $as no
a&&lication beca%se -# 8558 an earlier la, to t$e Cit'$oo!
La,s is not being a&&lie! retroactivel' b%t &ros&ectivel'.
/. 6ON -# 8558 violates )ec 15 #rt J o( t$e Constit%tion.
2$e Constit%tion is clear. 2$e creation o( local government
%nits m%st (ollo, t$e criteria establis$e! in t$e LGC an! not
in an' ot$er la,. 2$ere is onl' one LGC. 2$e Constit%tion
re.%ires Congress to sti&%late in t$e LGC all t$e criteria
necessar' (or t$e creation o( a cit' incl%!ing t$e conversion
o( a m%nici&alit' into a cit'. Congress cannot ,rite s%c$
criteria in an' ot$er la, li+e t$e Cit'$oo! La,s. 2$e criteria
&rescribe! in t$e LGC govern e4cl%sivel' t$e creation o( a
cit'. No ot$er la, not even t$e c$arter o( t$e cit' can
govern s%c$ creation. 2$e clear intent o( t$e Constit%tion is
to ins%re t$at t$e creation o( cities an! ot$er &olitical %nits
m%st (ollo, t$e same %ni(orm nonD!iscriminator' criteria
(o%n! solel' in t$e LGC. #n' !erogation or !eviation (rom
t$e criteria &rescribe! in t$e LGC violates )ection 15 #rticle
J o( t$e Constit%tion.
-# 8558 amen!e! )ection 0C5 o( t$e LGC to increase t$e
income re.%irement (rom =/5 million to =155 million (or t$e
creation o( a cit'. 2$is too+ e((ect on 15 7%ne /551. Hence
(rom t$at moment t$e LGC re.%ire! t$at an' m%nici&alit'
!esiring to become a cit' m%st satis(' t$e =155 million
income re.%irement. )ection 0C5 o( t$e LGC as amen!e!
b' -# 8558 !oes not contain an' e4em&tion (rom t$is
income re.%irement.
*n enacting -# 8558 Congress !i! not grant an' e4em&tion
to res&on!ent m%nici&alities even t$o%g$ t$eir cit'$oo!
bills ,ere &en!ing in Congress ,$en Congress &asse! -#
8558. 2$e Cit'$oo! La,s all enacte! a(ter t$e e((ectivit' o(
-# 8558 e4&licitl' e4em&t res&on!ent m%nici&alities (rom
t$e increase! income re.%irement in )ection 0C5 o( t$e
LGC as amen!e! b' -# 8558. )%c$ e4em&tion clearl'
violates )ection 15 #rticle J o( t$e Constit%tion an! is t$%s
&atentl' %nconstit%tional. 2o be vali! s%c$ e4em&tion
m%st be ,ritten in t$e LGC an! not in an' ot$er la,
incl%!ing t$e Cit'$oo! La,s.
2$ere can be no resort to e4trinsic ai!s S li+e !eliberations
o( Congress S i( t$e lang%age o( t$e la, is &lain clear an!
%nambig%o%s. Co%rts !etermine t$e intent o( t$e la, (rom
t$e literal lang%age o( t$e la, ,it$in t$e la,>s (o%r corners.
*( t$e lang%age o( t$e la, is &lain clear an! %nambig%o%s
co%rts sim&l' a&&l' t$e la, accor!ing to its e4&ress terms.
*( a literal a&&lication o( t$e la, res%lts in abs%r!it'
im&ossibilit' or in9%stice t$en co%rts ma' resort to e4trinsic
ai!s o( stat%tor' constr%ction li+e t$e legislative $istor' o(
t$e la,.
Congress in enacting -# 8558 to amen! )ection 0C5 o( t$e
LGC !i! not &rovi!e an' e4em&tion (rom t$e increase!
income re.%irement not even to res&on!ent m%nici&alities
,$ose cit'$oo! bills ,ere t$en &en!ing ,$en Congress
&asse! -# 8558. )ection 0C5 o( t$e LGC as amen!e! b'
-# 8558 contains no e4em&tion ,$atsoever. )ince t$e la,
is clear &lain an! %nambig%o%s t$at an' m%nici&alit'
!esiring to convert into a cit' m%st meet t$e increase!
income re.%irement t$ere is no reason to go be'on! t$e
letter o( t$e la, in a&&l'ing )ection 0C5 o( t$e LGC as
amen!e! b' -# 8558.
2r%e members o( Congress !isc%sse! e4em&ting
res&on!ent m%nici&alities (rom -# 8558 as s$o,n b' t$e
vario%s !eliberations on t$e matter !%ring t$e 11t$
Congress. Ho,ever Congress !i! not ,rite t$is inten!e!
e4em&tion into la,. Congress co%l! $ave easil' incl%!e!
s%c$ e4em&tion in -# 8558 b%t Congress !i! not. 2$is is
(atal to t$e ca%se o( res&on!ent m%nici&alities beca%se s%c$
1C8
e4em&tion m%st a&&ear in -# 8558 as an amen!ment to
)ection 0C5 o( t$e LGC. 2$e Constit%tion re.%ires t$at t$e
criteria (or t$e conversion o( a m%nici&alit' into a cit'
incl%!ing an' e4em&tion (rom s%c$ criteria m%st all be
,ritten in t$e LGC. Congress cannot &rescribe s%c$ criteria
or e4em&tion (rom s%c$ criteria in an' ot$er la,. *n s$ort
Congress cannot create a cit' t$ro%g$ a la, t$at !oes not
com&l' ,it$ t$e criteria or e4em&tion (o%n! in t$e LGC.
/. 6ON t$e Cit'$oo! La,s violate )ec G#rt J o( t$e
Constit%tion.
@ni(orm an! nonD!iscriminator' criteria as &rescribe! in t$e
LGC are essential to im&lement a (air an! e.%itable
!istrib%tion o( national ta4es to all local government %nits.
)ection G #rticle J o( t$e Constit%tion &rovi!es: Local
government %nits s$all $ave a 9%st s$are as !etermine! b'
la, in t$e national ta4es ,$ic$ s$all be a%tomaticall'
release! to t$em.
*( t$e criteria in creating local government %nits are not
%ni(orm an! !iscriminator' t$ere can be no (air an! 9%st
!istrib%tion o( t$e national ta4es to local government %nits.
# cit' ,it$ an ann%al income o( onl' =/5 million all ot$er
criteria being e.%al s$o%l! not receive t$e same s$are in
national ta4es as a cit' ,it$ an ann%al income o( =155
million or more. 2$e criteria o( lan! area &o&%lation an!
income as &rescribe! in )ection 0C5 o( t$e LGC m%st be
strictl' (ollo,e! beca%se s%c$ criteria &rescribe! b' la,
are material in !etermining t$e E9%st s$areF o( local
government %nits in national ta4es. )ince t$e Cit'$oo!
La,s !o not (ollo, t$e income criterion in )ection 0C5 o( t$e
LGC t$e' &revent t$e (air an! 9%st !istrib%tion o( t$e
*nternal -even%e #llotment in violation o( )ection G #rticle
J o( t$e Constit%tion.
/. 6ON t$e !eliberations o( %na&&rove! bills b' t$e 11
t$
Congress ma' be %se! as basis (or t$ose a&&rove! b' t$e
1/
t$
. NO
Congress is not a contin%ing bo!'. 2$e %na&&rove! cit'$oo!
bills (ile! !%ring t$e 11t$ Congress became mere scra&s o(
&a&er %&on t$e a!9o%rnment o( t$e 11t$ Congress. #ll t$e
$earings an! !eliberations con!%cte! !%ring t$e 11t$
Congress on %na&&rove! bills also became ,ort$less %&on
t$e a!9o%rnment o( t$e 11t$ Congress. 2$ese $earings an!
!eliberations cannot be %se! to inter&ret bills enacte! into
la, in t$e 11t$ or s%bse.%ent Congresses.
2$e members an! o((icers o( eac$ Congress are !i((erent. #ll
%na&&rove! bills (ile! in one Congress become (%nct%s
o((icio %&on a!9o%rnment o( t$at Congress an! m%st be reD
(ile! ane, in or!er to be ta+en %& in t$e ne4t Congress.
6$en t$eir res&ective a%t$ors reD(ile! t$e cit'$oo! bills in
/55G !%ring t$e 11t$ Congress t$e bills $a! to start (rom
s.%are one again going t$ro%g$ t$e legislative mill 9%st li+e
bills ta+en %& (or t$e (irst time (rom t$e (iling to t$e
a&&roval.
2$e !eliberations !%ring t$e 11t$ Congress on t$e
%na&&rove! cit'$oo! bills as ,ell as t$e !eliberations
!%ring t$e 1/t$ an! 11t$ Congresses on t$e %na&&rove!
resol%tion e4em&ting (rom -# 8558 certain m%nici&alities
$ave no legal signi(icance. 2$e' !o not .%ali(' as e4trinsic
ai!s in constr%ing la,s &asse! b' s%bse.%ent Congresses.
/. 6ON t$e e.%al &rotection cla%se ,as violate!.
*( )ection 0C5 o( t$e LGC as amen!e! b' -# 8558
containe! an e4em&tion to t$e =155 million ann%al income
re.%irement t$e criteria (or s%c$ e4em&tion co%l! be
scr%tiniBe! (or &ossible violation o( t$e e.%al &rotection
cla%se. 2$%s t$e criteria (or t$e e4em&tion i( (o%n! in t$e
LGC co%l! be assaile! on t$e gro%n! o( absence o( a vali!
classi(ication. Ho,ever )ection 0C5 o( t$e LGC as
amen!e! b' -# 8558 !oes not contain an' e4em&tion.
2$e e4em&tion is containe! in t$e Cit'$oo! La,s ,$ic$ are
%nconstit%tional beca%se s%c$ e4em&tion m%st be
&rescribe! in t$e LGC as man!ate! in )ection 15 #rticle J
o( t$e Constit%tion.
3ven i( t$e e4em&tion &rovision in t$e Cit'$oo! La,s ,ere
,ritten in )ection 0C5 o( t$e LGC as amen!e! b' -# 8558
s%c$ e4em&tion ,o%l! still be %nconstit%tional (or violation
o( t$e e.%al &rotection cla%se. 2$e e4em&tion &rovision
merel' states E34em&tion (rom -e&%blic #ct No. 8558
2$e Cit' o( 4 4 4 s$all be e4em&te! (rom t$e income
re.%irement &rescribe! %n!er -e&%blic #ct No. 8558.F 2$is
one sentence e4em&tion &rovision contains no classi(ication
stan!ar!s or g%i!elines !i((erentiating t$e e4em&te!
m%nici&alities (rom t$ose t$at are not e4em&te!.
3ven i( ,e ta+e into acco%nt t$e !eliberations in t$e 11t$
Congress t$at m%nici&alities ,it$ &en!ing cit'$oo! bills
1G5
s$o%l! be e4em&t (rom t$e =155 million income
re.%irement t$ere is still no vali! classi(ication to satis('
t$e e.%al &rotection cla%se. 2$e e4em&tion ,ill be base!
solel' on t$e (act t$at t$e 1G m%nici&alities $a! cit'$oo!
bills &en!ing in t$e 11t$ Congress ,$en -# 8558 ,as
enacte!. 2$is is not a vali! classi(ication bet,een t$ose
entitle! an! t$ose not entitle! to e4em&tion (rom t$e =155
million income re.%irement.
2o be vali! t$e classi(ication in t$e &resent case m%st be
base! on s%bstantial !istinctions rationall' relate! to a
legitimate government ob9ective ,$ic$ is t$e &%r&ose o( t$e
la, U/1V not limite! to e4isting con!itions onl' an!
a&&licable to all similarl' sit%ate!. 2$%s t$is Co%rt $as
r%le!:
2$e e.%al &rotection cla%se o( t$e 1887 Constit%tion &ermits
a vali! classi(ication %n!er t$e (ollo,ing con!itions:
1. 2$e classi(ication m%st rest on s%bstantial !istinctionsA
/. 2$e classi(ication m%st be germane to t$e &%r&ose o(
t$e la,A
1. 2$e classi(ication m%st not be limite! to e4isting
con!itions onl'A an! 0. 2$e classi(ication m%st a&&l'
e.%all' to all members o( t$e same class.
2$ere is no s%bstantial !istinction bet,een m%nici&alities
,it$ &en!ing cit'$oo! bills in t$e 11t$ Congress an!
m%nici&alities t$at !i! not $ave &en!ing bills. 2$e mere
&en!enc' o( a cit'$oo! bill in t$e 11t$ Congress is not a
material !i((erence to !isting%is$ one m%nici&alit' (rom anot$er
(or t$e &%r&ose o( t$e income re.%irement. 2$e &en!enc' o( a
cit'$oo! bill in t$e 11t$ Congress !oes not a((ect or !etermine
t$e level o( income o( a m%nici&alit'. M%nici&alities ,it$
&en!ing cit'$oo! bills in t$e 11t$ Congress mig$t even $ave
lo,er ann%al income t$an m%nici&alities t$at !i! not $ave
&en!ing cit'$oo! bills. *n s$ort t$e classi(ication criterion a
mere &en!enc' o( a cit'$oo! bill in t$e 11t$ Congress a is not
rationall' relate! to t$e &%r&ose o( t$e la, ,$ic$ is to &revent
(iscall' nonDviable m%nici&alities (rom converting into cities.
M%nici&alities t$at !i! not $ave &en!ing cit'$oo! bills ,ere
not in(orme! t$at a &en!ing cit'$oo! bill in t$e 11t$
Congress ,o%l! be a con!ition (or e4em&tion (rom t$e
increase! =155 million income re.%irement. Ha! t$e' been
in(orme! man' m%nici&alities ,o%l! $ave ca%se! t$e (iling
o( t$eir o,n cit'$oo! bills. 2$ese m%nici&alities even i(
t$e' $ave bigger ann%al income t$an t$e 1G res&on!ent
m%nici&alities cannot no, convert into cities i( t$eir income
is less t$an =155 million.
2$e (act o( &en!enc' o( a cit'$oo! bill in t$e 11t$ Congress
limits t$e e4em&tion to a s&eci(ic con!ition e4isting at t$e
time o( &assage o( -# 8558. 2$at s&eci(ic con!ition ,ill
never $a&&en again. 2$is violates t$e re.%irement t$at a
vali! classi(ication m%st not be limite! to e4isting con!itions
onl'. 2$is re.%irement is ill%strate! in Ma'(lo,er Farms
*nc. v. 2en 3'c+ ,$ere t$e c$allenge! la, allo,e! mil+
!ealers engage! in b%siness &rior to a (i4e! !ate to sell at a
&rice lo,er t$an t$at allo,e! to ne,comers in t$e same
b%siness. *n Ma'(lo,er t$e @.). )%&reme Co%rt $el!: 6e
are re(erre! to a $ost o( !ecisions to t$e e((ect t$at a
reg%lator' la, ma' be &ros&ective in o&eration an! ma'
e4ce&t (rom its s,ee& t$ose &resentl' engage! in t$e
calling or activit' to ,$ic$ it is !irecte!. 34am&les are
stat%tes licensing &$'sicians an! !entists ,$ic$ a&&l' onl'
to t$ose entering t$e &ro(ession s%bse.%ent to t$e &assage
o( t$e act an! e4em&t t$ose t$en in &ractice or Boning la,s
,$ic$ e4em&t e4isting b%il!ings or la,s (orbi!!ing
sla%g$ter$o%ses ,it$in certain areas b%t e4ce&ting e4isting
establis$ments. 2$e c$allenge! &rovision is %nli+e s%c$
la,s since on its (ace it is not a reg%lation o( a b%siness or
an activit' in t$e interest o( or (or t$e &rotection o( t$e
&%blic b%t an attem&t to give an economic a!vantage to
t$ose engage! in a given b%siness at an arbitrar' !ate as
against all t$ose ,$o enter t$e in!%str' a(ter t$at !ate. 2$e
a&&ellees !o not intimate t$at t$e classi(ication bears an'
relation to t$e &%blic $ealt$ or ,el(are generall'A t$at t$e
&rovision ,ill !isco%rage mono&ol'A or t$at it ,as aime! at
an' ab%se cogniBable b' la, in t$e mil+ b%siness. *n t$e
absence o( an' s%c$ s$o,ing ,e $ave no rig$t to con9%re
%& &ossible sit%ations ,$ic$ mig$t 9%sti(' t$e !iscrimination.
2$e classi(ication is arbitrar' an! %nreasonable an! !enies
t$e a&&ellant t$e e.%al &rotection o( t$e la,.
*n t$e same vein t$e e4em&tion &rovision in t$e Cit'$oo!
La,s gives t$e 1G m%nici&alities a %ni.%e a!vantage base!
on an arbitrar' !ate a t$e (iling o( t$eir cit'$oo! bills
be(ore t$e en! o( t$e 11t$ Congress X as against all ot$er
m%nici&alities t$at ,ant to convert into cities a(ter t$e
e((ectivit' o( -# 8558.
1G1
F%rt$ermore limiting t$e e4em&tion onl' to t$e 1G
m%nici&alities violates t$e re.%irement t$at t$e
classi(ication m%st a&&l' to all similarl' sit%ate!.
M%nici&alities ,it$ t$e same income as t$e 1G res&on!ent
m%nici&alities cannot convert into cities ,$ile t$e 1G
res&on!ent m%nici&alities can. Clearl' as ,or!e! t$e
e4em&tion &rovision (o%n! in t$e Cit'$oo! La,s even i( it
,ere ,ritten in )ection 0C5 o( t$e LGC ,o%l! still be
%nconstit%tional (or violation o( t$e e.%al &rotection cla%se.
-e'es !issent:
1. 2$e cit'$oo! la,s !o not violate )ection 15 #rticle J o( t$e
1887 Constit%tion.
)ec 15 man!ator'. 2$e %se o( t$e ,or! "s$all" in a
constit%tional &rovision is generall' consi!ere! as a
man!ator' comman! t$o%g$ t$e ,or! "s$all" ma' receive
a &ermissive inter&retation ,$en necessar' to carr' o%t t$e
tr%e intent o( t$e &rovision ,$ere t$e ,or! is (o%n!. 2$%s it
is not al,a's t$e case t$at t$e %se o( t$e ,or! "s$all" is
concl%sive. Ho,ever a rea!ing o( )ection 15 #rticle J
cannot be constr%e! as an't$ing else b%t man!ator'.
2$e intent o( -.#. No. 8558 ,$ic$ amen!e! )ection 0C5 o(
t$e LGC is to e4em&t res&on!ent m%nici&alities (rom t$e
income re.%irement o( =155555555.55. 2$%s t$e cit'$oo!
la,s ,$ic$ merel' carr' o%t t$e intent o( -.#. No. 8558 are
in accor!ance ,it$ t$e "criteria establis$e! in t$e LGC"
&%rs%ant to )ection 15 #rticle J o( t$e 1887 Constit%tion.
2$e cit'$oo! la,s contain a %ni(orml' ,or!e! e4em&tion
cla%se ,$ic$ states: "34em&tion (rom -e&%blic #ct No.
8558. 2$e cit' o( UbbbV s$all be e4em&t (rom t$e income
re.%irement &rescribe! %n!er -e&%blic #ct No. 8558."
6$at Congress $a! in min! is not at all times acc%ratel'
re(lecte! in t$e lang%age o( t$e stat%te. 2$%s t$e literal
inter&retation o( a stat%te ma' ren!er it meaninglessA an!
lea! to abs%r!it' in9%stice or contra!iction.15C 6$en t$is
$a&&ens an! (ollo,ing t$e r%le t$at t$e intent or t$e s&irit
o( t$e la, is t$e la, itsel( resort s$o%l! be $a! to t$e
&rinci&le t$at t$e s&irit o( t$e la, controls its letter. Not to
t$e letter t$at +illet$ b%t to t$e s&irit t$at vivi(iet$. Hin!i
ang letra na &%ma&ata' +%ng $in!i ang !i,a na nagbibiga'
b%$a'.
2$e &%r&ose o( t$e enactment o( -.#. No. 8558 can be seen
in t$e s&onsors$i& s&eec$ o( )enator =imentel on )enate Bill
No. /1C7. Note,ort$' is $is statement t$at t$e basis (or t$e
&ro&ose! increase (rom =/5555555.55 to =155555555.55
in t$e income re.%irement (or m%nici&alities an! cl%ster o(
baranga's ,anting to be converte! into cities is t$e "ma!
r%s$ o( m%nici&alities ,anting to be converte! into cities"
an! in or!er t$at t$e co%ntr' ",ill not be a nation o( all
cities an! no m%nici&alities."
2$e !eliberations o( Congress are necessar' to (erret o%t
t$e intent o( t$e legislat%re in enacting -.#. No. 8558. *t is
ver' clear t$at Congress inten!e! t$at t$e t$en &en!ing
cit'$oo! bills ,o%l! not be covere! b' t$e income
re.%irement o( =155555555.55 im&ose! b' -.#. No. 8558.
*t ,as ma!e clear b' t$e Legislat%re t$at -.#. No. 8558
,o%l! not $ave an' retroactive e((ect.
*t t$en becomes clear t$at t$e basis (or t$e incl%sion o( t$e
e4em&tion cla%se o( t$e cit'$oo! la,s is t$e clearDc%t intent
o( t$e Legislat%re o( not giving retroactive e((ect to -.#. No.
8558. *n (act not onl' !o t$e legislative recor!s bear t$e
legislative intent o( e4em&ting t$e cit'$oo! la,s (rom t$e
income re.%irement o( =155555555.55 im&ose! b' -.#.
No. 8558. Congress $as no, ma!e its intent e4&ress in t$e
cit'$oo! la,s.
=etitioners an! &etitionersDintervention ,ere not able to
!isc$arge t$eir on%s &roban!i o( overcoming t$e
&res%m&tion o( constit%tionalit' accor!e! to t$e cit'$oo!
la,s.
1. 2$e cit'$oo! la,s !o not violate t$e e.%al &rotection cla%se
%n!er )ection 1 #rticle *** o( t$e Constit%tion b' granting
s&ecial treatment to res&on!ent m%nici&alities in e4em&ting
t$em (rom t$e minim%m income re.%irement im&ose! b'
-.#. No. 8558.
*n essence t$e Cit'$oo! Bills no, %n!er consi!eration ,ill
$ave t$e same e((ect as t$at o( Ho%se 7oint -esol%tion No. 1
beca%se eac$ o( t$e 1/ bills see+s e4em&tion (rom t$e
$ig$er income re.%irement o( -# 8558. 2$e &ro&onents are
invo+ing t$e e4em&tion on t$e basis o( 9%stice an! (airness.
Base! on t$ese !ata it is clear t$at all t$e 1/ m%nici&alities
%n!er consi!eration are .%ali(ie! to become cities &rior to
-# 8558. #ll o( t$em satis(' t$e man!ator' re.%irement on
1G/
income an! one o( t$e t,o o&tional re.%irements o(
territor'.
2$e classi(ication rests on s%bstantial !istinctions. 6$at
!isting%is$es res&on!ent m%nici&alities (rom ot$er
m%nici&alities is t$at t$e latter $a! &en!ing cit'$oo! bills
be(ore t$e &assage o( -.#. No. 8558. *n t$e ,or!s o( )enator
Lim t$e &ec%liar con!itions o( res&on!ent m%nici&alities
,$ic$ le! to t$eir e4em&tion (rom t$e increase!
=155555555.55 income re.%irement o( -.#. No. 8558 is
t$at t$e im&osition o( a m%c$ $ig$er income re.%irement on
t$ose t$at ,ere .%ali(ie! to become cities be(ore t$e
enactment o( -.#. No. 8558 ,as "%n(airA li+e an' s&ort D
c$anging t$e r%les in t$e mi!!le o( t$e game." 2$%s
"(airness !ictates t$at t$e' s$o%l! be given a legal reme!'
b' ,$ic$ t$e' s$o%l! be allo,e! to &rove t$at t$e' $ave all
t$e necessar' .%ali(ications (or cit' stat%s %sing t$e criteria
set (ort$ %n!er t$e LGC &rior to its amen!ment b' -.#. No.
8558." 2r%l' t$e &ec%liar con!itions o( res&on!ent
m%nici&alities ,$ic$ are act%al an! real (%rnis$ s%((icient
gro%n!s (or legislative classi(ication.
2$e classi(ication is germane to t$e &%r&ose o( t$e la,. 2$e
e4em&tion o( res&on!ent m%nici&alities (rom t$e
=155555555.55 income re.%irement o( -.#. No. 8558 ,as
%n.%estionabl' !esigne! to ins%re t$at (airness an! 9%stice
,ere accor!e! to res&on!ent m%nici&alities as t$eir
cit'$oo! bills ,ere not enacte! b' Congress in vie, o(
intervening events an! (or reasons be'on! t$eir control. 2$e
e.%al &rotection cla%se !oes not merel' &ro$ibit Congress
(rom &assing !iscriminator' la,s. 2$e e.%al &rotection
cla%se also comman!s Congress to &ass la,s ,$ic$ ,o%l!
&ositivel' &romote e.%alit' or re!%ce e4isting ine.%alities.
2$is ,as ,$at Congress act%all' !i! in enacting t$e
cit'$oo! la,s. 2$ese la,s &ositivel' &romote e.%alit' an!
re!%ce t$e e4isting ine.%alit' bet,een res&on!ent
m%nici&alities an! t$e "ot$er t$irt'Dt,o ;1/< m%nici&alities"
,$ose cit'$oo! bills ,ere enacte! !%ring t$e 11t$
Congress.
2$e classi(ication is not limite! to e4isting con!itions onl'.
2$e nonDretroactive e((ect o( -.#. No. 8558 is not limite! in
a&&lication to con!itions e4isting at t$e time o( its
enactment. *t is inten!e! to a&&l' (or all time as long as t$e
con!itions set t$ere e4ist. *t is a&&licable as long as t$e
concerne! m%nici&alities $ave (ile! t$eir res&ective cit'$oo!
bills be(ore t$e e((ectivit' o( -.#. No. 8558 an! .%ali(' (or
conversion into cit' %n!er t$e original version o( )ection 0C5
o( t$e LGC.
2$e common e4em&tion cla%se in t$e cit'$oo! la,s is an
a&&lication o( t$e nonDretroactive e((ect o( -.#. No. 8558. *t
is not a !eclaration o( certain rig$ts b%t a mere !eclaration
o( &rior .%ali(ication an!?or com&liance ,it$ t$e nonD
retroactive e((ect o( -.#. No. 8558.
C%rio%sl' &etitioners an! &etitionersDinDintervention !o not
.%estion t$e constit%tionalit' o( -.#. No. 8558. *n (act t$e'
%se -.#. No. 8558 to arg%e (or t$e allege!
%nconstit%tionalit' o( t$e cit'$oo! la,s. 2$is is abs%r!
consi!ering t$at t$e cit'$oo! la,s onl' e4&resse! t$e intent
o( -.#. No. 8558 to e4em&t res&on!ent m%nici&alities (rom
t$e income re.%irement o( =155555555.55.
#n analog' ma' be (o%n! in t$e Constit%tion. CitiBens$i&
ma' be grante! to t$ose born be(ore 7an%ar' 17 1871 o(
Fili&ino mot$ers ,$o elect =$ili&&ine citiBens$i& %&on
reac$ing t$e age o( ma9orit'. CitiBens$i& $o,ever is !enie!
to t$ose ,$o alt$o%g$ born be(ore 7an%ar' 17 1871 o(
Fili&ino mot$ers !i! not elect =$ili&&ine citiBens$i& %&on
reac$ing t$e age o( ma9orit'.1CC *n li+e manner Congress
$as t$e &o,er to carr' o%t t$e intent o( -.#. No. 8558 b'
ma+ing a la, ,$ic$ e4em&ts m%nici&alities (rom t$e
=155555555.55 income re.%irement im&ose! b' -.#. No.
8558 i( t$eir cit'$oo! la,s ,ere &en!ing ,$en -.#. No.
8558 ,as &asse! an! ,ere com&liant ,it$ t$e income
t$res$ol! re.%irement o( =/5555555.55 im&ose! b' t$en
)ection 0C5 o( t$e LGC.
3ven i( t$e classi(ication o( t$e cit'$oo! la,s is limite! to
e4isting con!itions onl' t$is !oes not a%tomaticall' mean
t$at t$e' are %nconstit%tional. 2$e general r%le is t$at a
classi(ication m%st not be base! on e4isting con!itions onl'.
*t m%st also be ma!e (or (%t%re ac.%isitions o( t$e class as
ot$er s%b9ects ac.%ire t$e c$aracteristics ,$ic$ (orm t$e
basis o( t$e classi(ication. 2$e e4ce&tion is ,$en t$e stat%te
is c%rative or reme!ial an! t$%s tem&orar'.
Here t$e cit'$oo! la,s are c%rative or reme!ial stat%tes.
2$e' see+ to &revent t$e great in9%stice ,$ic$ ,o%l! be
committe! to res&on!ent m%nici&alities. #gain t$e cit'$oo!
la,s are not contrar' to t$e s&irit an! intent o( -.#. No.
1G1
8558 beca%se Congress inten!e! sai! la, to be &ros&ective
not retroactive in a&&lication. *n!ee! to !en' res&on!ent
m%nici&alities t$e same rig$ts an! &rivileges accor!e! to
t$e ot$er t$irt'Dt,o ;1/< m%nici&alities ,$en t$e' are %n!er
t$e same circ%mstances is tantamo%nt to !en'ing
res&on!ent m%nici&alities t$e &rotective mantle o( t$e e.%al
&rotection cla%se. *n e((ect &etitioners an! &etitionersDinD
intervention are creating an abs%r! sit%ation in ,$ic$ an
allege! violation o( t$e e.%al &rotection cla%se o( t$e
Constit%tion is reme!ie! b' anot$er violation o( t$e e.%al
&rotection cla%se. 2$at t$e Co%rt cannot s%stain.
2$e classi(ication a&&lies e.%all' to all members o( t$e
same class. 2$e cit'$oo! la,s in carr'ing o%t t$e clear
intent o( -.#. No. 8558 a&&l' to m%nici&alities t$at $a!
&en!ing cit'$oo! bills be(ore t$e &assage o( -.#. No. 8558
an! ,ere com&liant ,it$ t$en )ection 0C5 o( t$e LGC t$at
&rescribe! an income re.%irement o( =/5555555.55.
QQ)%mming @&
Ma9orit'>s gro%n! (or %nconstit%tionalit':
;1< a&&l'ing -.#. No. 8558 to t$e &resent case is a &ros&ective not
a retroactive a&&lication beca%se -.#. No. 8558 too+ e((ect in
/551 ,$ile t$e cit'$oo! bills became la,s more t$an (ive ;C<
'ears laterA
cit'$oo! bills ,ere &en!ing be(ore t$e &assage o( -.#. No.
8558. Congress ,as ,ell a,are o( s%c$ (act. 2$%s Congress
inten!e! t$e $i+e! income re.%irement in -.#. No. 8558 not
to a&&l' to t$e cit'$oo! bills ,$ic$ became t$e s%b9ect
cit'$oo! la,s. 2$is is t$e conte4t o( t$e re(erence to t$e
&ros&ective a&&lication o( t$e sai! -.#. Congress inten!e!
t$e cit'$oo! la,s in .%estion to be e4em&te! (rom t$e
income re.%irement o( =155555555.55 im&ose! b' -.#.
No. 8558.
;/< t$e Constit%tion re.%ires t$at Congress s$all &rescribe all t$e
criteria (or t$e creation o( a cit' in t$e LGC an! not in an' ot$er
la,A
2$e secon! &oint is s&ecio%s. *t overloo+s t$at -.#. No. 8558 is
no, )ection 0C5 o( t$e LGC. 2$e cit'$oo! la,s also merel' carr'
o%t t$e intent o( -.#. No. 8558 to e4em&t res&on!ent m%nici&alities
(rom t$e income re.%irement o( =155555555.55.
;1< t$e cit'$oo! la,s violate )ection G #rticle J o( t$e Constit%tion
beca%se t$e' &revent a (air an! 9%st !istrib%tion o( t$e national
ta4es to local government %nitsA
2$e t$ir! nee!s clari(ication. #rticle J )ection G o( t$e
Constit%tion s&ea+s (or itsel(. 6$ile it is tr%e t$at local government
%nits s$all $ave a "9%st s$are" in t$e national ta4es it is .%ali(ie! b'
t$e &$rase "as !etermine! b' la,."
;0< t$e intent o( members o( Congress to e4em&t certain
m%nici&alities (rom t$e coverage o( -.#. No. 8558 remaine! an
intent an! ,as never ,ritten into la,A
Congress meant not to incor&orate its intent in ,$at event%all'
became -.#. No. 8558. 2o recall )enate =resi!ent Fran+lin Drilon
as+e! i( t$ere ,o%l! be an a&&ro&riate lang%age to be cra(te!
,$ic$ ,o%l! re(lect t$e intent o( Congress. )enator #.%ilino
=imentel gave a categorical ans,er: "* !o not t$in+ it is necessar'
to &%t t$at &rovision beca%se ,$at ,e are sa'ing $ere ,ill (orm
&art o( t$e inter&retation o( t$is bill."
;C< t$e criteria &rescribe! in )ection 0C5 o( t$e LGC as amen!e!
b' -.#. No. 8558 (or converting a m%nici&alit' into a cit' are clear
&lain an! %nambig%o%s nee!ing no resort to an' stat%tor'
constr%ctionA
Neit$er is t$e (i(t$ item &ers%asive. 2$e !issent a!mits t$at
co%rts ma' resort to e4trinsic ai!s o( stat%tor' constr%ction li+e t$e
legislative $istor' o( t$e la, i( t$e literal a&&lication o( t$e la,
res%lts in abs%r!it' im&ossibilit' or in9%stice.
;G< t$e !eliberations o( t$e 11t$ or 1/t$ Congress on %na&&rove!
bills or resol%tions are not e4trinsic ai!s in inter&reting a la,
&asse! in t$e 11t$ Congress beca%se it is not a contin%ing bo!'A
an!
*t is immaterial i( Congress is not a contin%ing bo!'. 2$e
$earings an! !eliberations con!%cte! !%ring t$e 11t$ or 1/t$
Congress ma' still be %se! as e4trinsic ai!s or re(erence beca%se
t$e same cit'$oo! bills ,$ic$ ,ere (ile! be(ore t$e &assage o( -.#.
No. 8558 ,ere being consi!ere! !%ring t$e 11t$ Congress.
*t !oes not matter i( t$e o((icers o( eac$ Congress or t$e
a%t$ors o( t$e bills are !i((erent. *n t$e en! t$e rationale (or
e4em&ting t$e cit'$oo! bills (rom t$e =155555555.55
income re.%irement im&ose! b' -.#. No. 8558 remains t$e
same: ;1< t$e cit'$oo! bills ,ere &en!ing be(ore t$e
1G0
&assage o( -.#. No. 8558 an! ;/< res&on!ent m%nici&alities
,ere com&liant ,it$ t$e =/5555555.55 income
re.%irement im&ose! b' t$e ol! )ection 0C5 o( t$e LGC
,$ic$ ,as event%all' amen!e! b' -.#. No. 8558.
6$at s$o%l! not be overloo+e! is t$at t$e cit'$oo! la,s
en9o' t$e &res%m&tion o( constit%tionalit'. =etitioners an!
&etitionersDinDintervention bear t$e $eav' b%r!en o(
overcoming s%c$ &res%m&tion. Ho,ever t$e ma9orit' !oes
e4actl' t$e o&&osite. *t s$i(ts t$e on%s &roban!i to
res&on!ent m%nici&alities to &rove t$at t$eir cit'$oo! la,s
are constit%tional. 2$at is violative o( t$e basic r%le o(
evi!ence.
;7< even i( t$e e4em&tion in t$e cit'$oo! la,s ,ere ,ritten in
)ection 0C5 o( t$e LGC t$e e4em&tion ,o%l! still be
%nconstit%tional (or violation o( t$e e.%al &rotection cla%se beca%se
t$e e4em&tion is base! solel' on t$e (act t$at t$e 1G m%nici&alities
$a! cit'$oo! bills &en!ing in t$e 11t$ Congress ,$en -.#. No. 8558
,as enacte!.
2$e e4em&tion on t$e 1G m%nici&alities is not onl' base! on t$e
(act t$at t$e' $a! &en!ing cit'$oo! bills ,$en -.#. No. 8558 ,as
enacte!. #si!e (rom com&l'ing ,it$ t$e territor' an! &o&%lation
re.%irements o( t$e LGC t$ese m%nici&alities also met t$e
=/5555555.55 income t$res$ol! o( t$e ol! )ection 0C5 o( t$e LGC.
QQ intent o( -.#. No. 8558 is clear. Congress inten!e! to e4em&t
m%nici&alities ;1< t$at $a! &en!ing cit'$oo! bills be(ore t$e
&assage o( -.#. No. 8558A an! ;/< t$at ,ere com&liant ,it$ t$e
income t$res$ol! o( =/5555555.55 %n!er t$e ol! )ection 0C5 o(
t$e LGC. -es&on!ent m%nici&alities are covere! b' t$e t,in
criteria. 2$%s &etitioners an! &etitionersDinDintervention cannot
$ar!l' claim t$e cit'$oo! la,s are %nconstit%tional on t$e gro%n!
t$e' violate t$e criteria establis$e! in t$e LGC. Neit$er ma' t$e'
claim t$at t$e cit'$oo! la,s violate t$e e.%al &rotection cla%se o(
t$e Constit%tion. Congress is given t$e ,i!est latit%!e in ma+ing
classi(ications an! in la'ing !o,n t$e criteria. )e&aration o( &o,ers
&revents t$e Co%rt (rom &r'ing into t$e ,is!om or 9%!gment o(
Congress. 3ven i( t$e Co%rt !i! t$ere is no %nreasonable
classi(ication $ere m%c$ less grave ab%se o( !iscretion.
2$e intent o( Congress D to avert t$e ma! r%s$ o( m%nici&alities
,anting to be converte! into cities an! to &revent t$is nation (rom
becoming a nation o( all cities an! no m%nici&alities D is &reserve!.
1GC
1GG
1G7
1G8
1G8
175
171
17/
171
170
17C
17G
177
178
178
185
181
Caasi v. CA
Facts: Merito Mig%el ,on in t$e 1888 ma'oral elections in Bolinao
=angasinan. =etitions ,ere (ile! see+ing to !is.%ali(' $im on t$e
gro%n! t$at $e $ol!s a green car! iss%e! to $im b' t$e @)
*mmigration )ervice ,$ic$ ,o%l! mean t$at $e $is a &ermanent
resi!ent o( t$e @nite! )tates an! not o( Bolinao. COM3L3C
!ismisse! t$e &etitions on t$e gro%n! t$at &ossession o( a green
car! b' Mig%el !oes not s%((icientl' establis$ t$at $e $as
aban!one! $is resi!ence in t$e =$ili&&ines. On t$e contrar'
!es&ite $is green car! $e $as s%((icientl' in!icate! $is intention to
contin%o%sl' resi!e in Bolinao as s$o,n b' $is $aving vote! in
s%ccessive elections in sai! m%nici&alit'. Commissioner Ba!o'>s
!issent: # green car! $ol!er being a &ermanent resi!ent o( or an
immigrant o( a (oreign co%ntr' an! res&on!ent $aving a!mitte!
t$at $e is a green car! $ol!er it is inc%mbent %&on $im %n!er
)ection G8 o( t$e Omnib%s 3lection Co!e to &rove t$at $e "$as
,aive! $is stat%s as a &ermanent resi!ent or immigrant" to be
.%ali(ie! to r%n (or electe! o((ice. 2$is res&on!ent $as not !one.
Mig%el>s o&&onent Caasi also (ile! a &etition (or .%o ,arranto.
Mig%el (ile! an M2D ,$ic$ ,as !enie! b' t$e -2C. C# or!ere! t$e
-2C to !ismiss an! !esist (rom (%rt$er &rocee!ing in t$e .%o
,arranto case on t$e gro%n! t$at t$e COM3L3C $as alrea!' r%le!
on $is .%ali(ications.
*ss%es: 1. 6ON a green car! is &roo( t$at t$e $ol!er is a &ermanent
resi!ent o( t$e @nite! )tates
Consti: #rticle J* )ec. 18. =%blic o((icers an! em&lo'ees o,e
t$e )tate an! t$is Constit%tion allegiance at all times an!
18/
an' &%blic o((icer or em&lo'ee ,$o see+s to c$ange $is
citiBens$i& or ac.%ire t$e stat%s o( an immigrant o( anot$er
co%ntr' !%ring $is ten%re s$all be !ealt ,it$ b' la,.
Omnib%s 3lection Co!e: )3C. G8. Dis.%ali(ications ... #n'
&erson ,$o is a &ermanent resi!ent o( or an immigrant to a
(oreign co%ntr' s$all not be .%ali(ie! to r%n (or an' elective
o((ice %n!er t$is Co!e %nless sai! &erson $as ,aive! $is
stat%s as &ermanent resi!ent or immigrant o( a (oreign
co%ntr' in accor!ance ,it$ t$e resi!ence re.%irement
&rovi!e! (or in t$e election la,s.
Co%rt too+ note o(: a.in t$e "#&&lication (or *mmigrant Kisa
an! #lien -egistration" Mig%elHs ans,er regar!ing $is
"Lengt$ o( inten!e! sta' ;i( &ermanentl' so state<" ,as
E=ermanentl'." b. on its (ace t$e green car! t$at ,as
s%bse.%entl' iss%e! b' t$e @nite! )tates De&artment o(
7%stice an! *mmigration an! -egistration )ervice to t$e
res&on!ent Merito C. Mig%el i!enti(ies $im in clear bol!
letters as a -3)*D3N2 #L*3N. c. On t$e bac+ o( t$e car! t$e
%&&er &ortion t$e (ollo,ing in(ormation is &rinte!:#lien
-egistration -ecei&t Car!. =erson i!enti(ie! b' t$is car! is
entitle! to resi!e &ermanentl' an! ,or+ in t$e @nite!
)tates."
Des&ite $is vigoro%s !isclaimer Mig%elHs immigration to t$e
@nite! )tates in 1880 constit%te! an aban!onment o( $is
!omicile an! resi!ence in t$e =$ili&&ines. For $e !i! not go
to t$e @nite! )tates merel' to visit $is c$il!ren or $is !octor
t$ereA $e entere! t$e limite! )tates ,it$ t$e intention to
$ave t$ere &ermanentl' as evi!ence! b' $is a&&lication (or
an immigrantHs ;not a visitorHs or to%ristHs< visa. Base! on
t$at a&&lication o( $is $e ,as iss%e! b' t$e @.).
Government t$e re.%isite green car! or a%t$orit' to resi!e
t$ere &ermanentl'.
*mmigration: removing into one &lace (rom anot$erA t$e act
o( immigrating t$e entering into a co%ntr' ,it$ t$e intention
o( resi!ing in it.
*mmigrant: &erson ,$o removes into a co%ntr' (or t$e
&%r&ose o( &ermanent resi!ence. Ho,ever stat%tes
sometimes give a broa!er meaning to t$e term "immigrant."
#s a resi!ent alien in t$e @.). Mig%el o,es tem&orar' an!
local allegiance to t$e @.). t$e co%ntr' in ,$ic$ $e resi!es.
2$is is in ret%rn (or t$e &rotection given to $im !%ring t$e
&erio! o( $is resi!ence t$erein. #liens rea!ing in t$e limite!
)tates ,$ile t$e' are &ermitte! to remain are in general
entitle! to t$e &rotection o( t$e la,s ,it$ regar! to t$eir
rig$ts o( &erson an! &ro&ert' an! to t$eir civil an! criminal
res&onsibilit'. *n general aliens resi!ing in t$e @nite!
)tates ,$ile t$e' are &ermitte! to remain are entitle! to
t$e sa(eg%ar!s o( t$e constit%tion ,it$ regar! to t$eir rig$ts
o( &erson an! &ro&ert' an! to t$eir civil an! criminal
res&onsibilit'. 2$%s resi!ent alien (rien!s are entitle! to t$e
bene(it o( t$e &rovision o( t$e Fo%rteent$ #men!ment to t$e
(e!eral constit%tion t$at no state s$all !e&rive "an' &erson"
o( li(e libert' or &ro&ert' ,it$o%t !%e &rocess o( la, or
!en' to an' &erson t$e e.%al &rotection o( t$e la, an! t$e
&rotection o( t$is amen!ment e4ten!s to t$e rig$t to earn a
liveli$oo! b' (ollo,ing t$e or!inar' occ%&ations o( li(e. )o an
alien is entitle! to t$e &rotection o( t$e &rovision o( t$e Fi(t$
#men!ment to t$e (e!eral constit%tion t$at no &erson s$all
be !e&rive! o( li(e libert' or &ro&ert' ,it$o%t !%e &rocess
o( la,.
)ection 18 #rticle J* o( t$e 1887 Constit%tion ,$ic$
&rovi!es t$at "an' &%blic o((icer or em&lo'ee ,$o see+s to
c$ange $is citiBens$i& or ac.%ire t$e stat%s o( an immigrant
o( anot$er co%ntr' !%ring $is ten%re s$all be !ealt ,it$ b'
la," is not a&&licable to Merito Mig%el (or $e ac.%ire! t$e
stat%s o( an immigrant o( t$e @nite! )tates be(ore $e ,as
electe! to &%blic o((ice not "!%ring $is ten%re" as ma'or o(
Bolinao =angasinan.
2$e la, a&&licable to $im is )ection G8 o( t$e Omnib%s
3lection Co!e ;B.=. Blg. 881< ,$ic$ &rovi!es: #n' &erson
,$o is a &ermanent resi!ent o( or an immigrant to a (oreign
co%ntr' s$all not be .%ali(ie! to r%n (or an' elective o((ice
%n!er t$is Co!e %nless s%c$ &erson $as ,aive! $is stat%s
as &ermanent resi!ent or immigrant o( a (oreign co%ntr' in
accor!ance ,it$ t$e resi!ence re.%irement &rovi!e! (or in
t$e election la,s.H
/. 6ON Mig%el ,aive! $is stat%s as a &ermanent resi!ent o( or
immigrant to t$e @.).#. &rior to t$e local elections on
7an%ar' 18 1888.
2o be ".%ali(ie! to r%n (or elective o((ice" in t$e =$ili&&ines
t$e la, re.%ires t$at t$e can!i!ate ,$o is a green car!
$ol!er m%st $ave ",aive! $is stat%s as a &ermanent
resi!ent or immigrant o( a (oreign co%ntr'." 2$ere(ore $is
act o( (iling a certi(icate o( can!i!ac' (or elective o((ice in
181
t$e =$ili&&ines !i! not o( itsel( constit%te a ,aiver o( $is
stat%s as a &ermanent resi!ent or immigrant o( t$e @nite!
)tates. 2$e ,aiver o( $is green car! s$o%l! be mani(este!
b' some act or acts in!e&en!ent o( an! !one &rior to (iling
$is can!i!ac' (or elective o((ice in t$is co%ntr'. 6it$o%t
s%c$ &rior ,aiver $e ,as "!is.%ali(ie! to r%n (or an'
elective o((ice" ;)ec. G8 Omnib%s 3lection Co!e<.
Mig%el a!mits t$at $e $ol!s a green car! ,$ic$ &roves t$at
$e is a &ermanent resi!ent or immigrant it o( t$e @nite!
)tates b%t t$e recor!s o( t$is case are star+l' bare o( &roo(
t$at $e $a! ,aive! $is stat%s as s%c$ be(ore $e ran (or
election as m%nici&al ma'or o( Bolinao on 7an%ar' 18 1888.
6e t$ere(ore $ol! t$at $e ,as !is.%ali(ie! to become a
can!i!ate (or t$at o((ice.
-esi!ence in t$e m%nici&alit' ,$ere $e inten!s to r%n (or
elective o((ice (or at least one ;1< 'ear at t$e time o( (iling
$is certi(icate o( can!i!ac' is one o( t$e .%ali(ications t$at
a can!i!ate (or elective &%blic o((ice m%st &ossess. Mig%el
!i! not &ossess t$at .%ali(ication beca%se $e ,as a
&ermanent resi!ent o( t$e @nite! )tates an! $e resi!e! in
Bolinao (or a &erio! o( onl' t$ree ;1< mont$s ;not one 'ear<
a(ter $is ret%rn to t$e =$ili&&ines in November 1887 an!
be(ore $e ran (or ma'or o( t$at m%nici&alit' on 7an%ar' 18
1888.
*n banning (rom elective &%blic o((ice =$ili&&ine citiBens ,$o
are &ermanent resi!ents or immigrants o( a (oreign co%ntr'
t$e Omnib%s 3lection Co!e $as lai! !o,n a clear &olic' o(
e4cl%!ing (rom t$e rig$t to $ol! elective &%blic o((ice t$ose
=$ili&&ine citiBens ,$o &ossess !%al lo'alties an! allegiance.
2$e la, $as reserve! t$at &rivilege (or its citiBens ,$o $ave
cast t$eir lot ,it$ o%r co%ntr' ",it$o%t mental reservations
or &%r&ose o( evasion." 2$e ass%m&tion is t$at t$ose ,$o
are resi!ent aliens o( a (oreign co%ntr' are inca&able o( s%c$
entire !evotion to t$e interest an! ,el(are o( t$eir $omelan!
(or ,it$ one e'e on t$eir &%blic !%ties $ere t$e' m%st +ee&
anot$er e'e on t$eir !%ties %n!er t$e la,s o( t$e (oreign
co%ntr' o( t$eir c$oice in or!er to &reserve t$eir stat%s as
&ermanent resi!ents t$ereo(.
Mig%el insists t$at even t$o%g$ $e a&&lie! (or immigration
an! &ermanent resi!ence in t$e @nite! )tates $e never
reall' inten!e! to live t$ere &ermanentl' (or all t$at $e
,ante! ,as a green car! to enable $im to come an! go to
t$e @.). ,it$ ease. *n ot$er ,or!s $e ,o%l! $ave t$is Co%rt
believe t$at $e a&&lie! (or immigration to t$e @.). %n!er
(alse &retensesA t$at all t$is time $e onl' $a! one (oot in t$e
@nite! )tates b%t +e&t $is ot$er (oot in t$e =$ili&&ines. 3ven
i( t$at ,ere tr%e t$is Co%rt ,ill not allo, itsel( to be a &art'
to $is !%&licit' b' &ermitting $im to bene(it (rom it an!
giving $im t$e best o( bot$ ,orl!s so to s&ea+.
Mig%elHs a&&lication (or immigrant stat%s an! &ermanent
resi!ence in t$e @.). an! $is &ossession o( a green car!
attesting to s%c$ stat%s are concl%sive &roo( t$at $e is a
&ermanent resi!ent o( t$e @.). !es&ite $is occasional visits
to t$e =$ili&&ines. 2$e ,aiver o( s%c$ immigrant stat%s
s$o%l! be as in!%bitable as $is a&&lication (or it. #bsent
clear evi!ence t$at $e ma!e an irrevocable ,aiver o( t$at
stat%s or t$at $e s%rren!ere! $is green car! to t$e
a&&ro&riate @.). a%t$orities be(ore $e ran (or ma'or o(
Bolinao in t$e local elections on 7an%ar' 18 1888 o%r
concl%sion is t$at $e ,as !is.%ali(ie! to r%n (or sai! &%blic
o((ice $ence $is election t$ereto ,as n%ll an! voi!.
Roriguez v. COM%L%C
Facts : -o!rig%eB ,on against Mar.%eB (or t$e g%bernatorial &ost in
W%eBon &rovince. Mar.%eB c$allenge! -o!rig%eB> victor' via
&etition (or .%o ,arranto be(ore t$e COM3L3C. Mar.%eB reveale!
t$at -o!rig%eB le(t t$e @nite! )tates ,$ere a c$arge (ile! on
November 1/ 188C is &en!ing against t$e latter be(ore t$e Los
#ngeles M%nici&al Co%rt (or (ra%!%lent ins%rance claims gran!
t$e(t an! attem&te! gran! t$e(t o( &ersonal &ro&ert'. -o!rig%eB is
t$ere(ore a "(%gitive (rom 9%stice" ,$ic$ is a gro%n! (or $is
!is.%ali(ication?ineligibilit' %n!er )ection 05;e< o( t$e LGC. 2$e
COM3L3C !ismisse! Mar.%eB> .%o ,arranto &etition in a resol%tion
o( Febr%ar' / 1881 an! li+e,ise !enie! a reconsi!eration t$ereo(.
Mar.%eB c$allenge! t$e COM3L3C !ismissal via &etition (or
certiorari. *n t$e Ma' 8 188C election -o!rig%eB an! Mar.%eB
rene,e! t$eir rivalr' (or t$e same &osition o( governor. 2$is time
Mar.%eB c$allenge! -o!rig%eBH can!i!ac' via &etition (or
!is.%ali(ication be(ore t$e COM3L3C base! &rinci&all' on t$e same
allegation t$at -o!rig%eB is a "(%gitive (rom 9%stice." 2$is &etition
(or !is.%ali(ication ,as (ile! b' Mar.%eB on #&ril 11 188C ,$en
-o!rig%eBH &etition (or certiorari ;11/888< S (rom ,$ere t$e #&ril
18 188C M#-W@3Z Decision s&r%ng S ,as still t$en &en!ing
180
be(ore t$e Co%rt. On Ma' 7 188C an! a(ter t$e &rom%lgation o( t$e
M#-W@3Z Decision t$e COM3L3C &rom%lgate! a Consoli!ate!
-esol%tion (or 3=C No. 8/D/8 ;.%o ,arranto case< an! )=# No. 8CD
588 ;!is.%ali(ication case<.
*ss%e: 6ON -o!rig%eB is a "(%gitive (rom 9%stice" as contem&late!
b' )ection 05;e< o( t$e LGC base! on t$e allege! &en!enc' o( a
criminal c$arge against $im.
F%gitive (rom 9%stice: # &erson ,$o $aving committe! a
crime (lees (rom 9%ris!iction o( t$e co%rt ,$ere crime ,as
committe! or !e&arts (rom $is %s%al &lace o( abo!e an!
conceals $imsel( ,it$in t$e !istrict ;Blac+>s La,<
Ob9ective (acts s%((icient to constit%te (lig$t (rom 9%stice
are: ;a< a &erson committe! a HcrimeH or $as been c$arge!
(or t$e commission t$ereo(A an! ;b< t$erea(ter leaves t$e
9%ris!iction o( t$e co%rt ,$ere sai! crime ,as committe! or
$is %s%al &lace o( abo!e.
Filing o( c$arges &rior to (lig$t is not al,a's an antece!ent
re.%irement to label one a H(%gitive (rom 9%stice.> Mere
commission o( a HcrimeH ,it$o%t c$arges $aving been (ile!
(or t$e same an! (lig$t s%bse.%ent t$ereto s%((icientl' meet
t$e !e(inition. #ttention is !irecte! at t$e %se o( t$e ,or!
HcrimeH ,$ic$ is not em&lo'e! to connote g%ilt or conviction
(or t$e commission t$ereo(. 7%stice Davi!eHs se&arate
o&inion in G.-. No. 11/888 el%ci!ates t$at t$e
!is.%ali(ication (or being a (%gitive !oes not involve t$e
iss%e o( t$e &res%m&tion o( innocence t$e reason (or
!is.%ali(ication being t$at a &erson H,as not bro%g$t ,it$in
t$e 9%ris!iction o( t$e co%rt beca%se $e $a! s%ccess(%ll'
eva!e! arrestA or i( $e ,as bro%g$t ,it$in t$e 9%ris!iction o(
t$e co%rt an! ,as trie! an! convicte! $e $as s%ccess(%ll'
eva!e! service o( sentence beca%se $e $a! 9%m&e! bail or
esca&e!. 2$e !is.%ali(ication t$en is base! on $is ](lig$t
(rom 9%stice.>
)tate v. -ic$ter: 2$e sim&le (act t$at t$e' ;&erson ,$o
$ave committe! crime ,it$in a state< are not ,it$in t$e
state to ans,er its criminal &rocess ,$en re.%ire! ren!ers
t$em in legal inten!ment (%gitives (rom 9%stice.
2H3 M3-3 F#C2 2H#2 2H3-3 #-3 =3ND*NG CH#-G3) *N
2H3 @N*23D )2#23) #ND 2H#2 =32*2*ON3- -OD-*G@3Z *)
*N 2H3 =H*L*==*N3) M#M3 =32*2*ON3- # HF@G*2*K3 F-OM
7@)2*C3.H
Mar.%eB !ecision: incl%!es not onl' t$ose ,$o (lee a(ter
conviction to avoi! &%nis$ment b%t li+e,ise ,$o a(ter being
c$arge! (lee to avoi! &rosec%tion." 2$e !e(inition t$%s
in!icates t$at t$e intent to eva!e is t$e com&elling (actor
t$at animates oneHs (lig$t (rom a &artic%lar 9%ris!iction. #n!
obvio%sl' t$ere can onl' be an intent to eva!e &rosec%tion
or &%nis$ment ,$en t$ere is +no,le!ge b' t$e (leeing
s%b9ect o( an alrea!' instit%te! in!ictment or o( a
&rom%lgate! 9%!gment o( conviction.
-o!rig%eBH case 9%st cannot (it in t$is conce&t. 2$ere is no
!is&%te t$at $is arrival in t$e =$ili&&ines (rom t$e @) on 7%ne
/C 188C as &er certi(ications iss%e! b' t$e B%rea% o(
*mmigrations !ate! #&ril /7an! 7%ne /G o( 188CU0V
&rece!e! t$e (iling o( t$e (elon' com&laint in t$e Los
#ngeles Co%rt on November 1/ 188C an! o( t$e iss%ance on
even !ate o( t$e arrest ,arrant b' t$at same (oreign co%rt
b' almost (ive ;C< mont$s. *t ,as clearl' im&ossible (or
-o!rig%eB to $ave +no,n abo%t s%c$ (elon' com&laint an!
arrest ,arrant at t$e time $e le(t t$e @) as t$ere ,as in
(act no com&laint an! arrest ,arrant S m%c$ less conviction
S to s&ea+ o( 'et at s%c$ time. 6$at &rosec%tion or
&%nis$ment t$en ,as -o!rig%eB !eliberatel' r%nning a,a'
(rom ,it$ $is !e&art%re (rom t$e @)T 2$e ver' essence o(
being a "(%gitive (rom 9%stice" %n!er t$e M#-W@3Z Decision
!e(inition is 9%st no,$ere to be (o%n! in t$e circ%mstances
o( -o!rig%eB.
"2$e circ%mstantial (act t$at it ,as seventeen ;17< !a's
a(ter -o!rig%eBH !e&art%re t$at c$arges against $im ,ere
(ile! cannot overt%rn t$e &res%m&tion o( goo! (ait$ in $is
(avor. 2$e same s%ggests not$ing more t$an t$e se.%ence
o( events ,$ic$ trans&ire!. # s%b9ective (act as t$at o(
&etitionerHs &%r&ose cannot be in(erre! (rom t$e ob9ective
!ata at $an! in t$e absence o( (%rt$er &roo( to s%bstantiate
s%c$ claim. *n (act t$e evi!ence o( &etitioner -o!rig%eB
s%((icientl' &roves t$at $is com&%lsion to ret%rn to t$e
=$ili&&ines ,as !%e to $is !esire to 9oin an! &artici&ate
vigoro%sl' in t$e &olitical cam&aigns against (ormer
=resi!ent Fer!inan! 3. Marcos. For in!ee! not long a(ter
&etitionerHs arrival in t$e co%ntr' t$e %&$eaval ,ro%g$t b'
t$e &olitical (orces an! t$e avalanc$e o( events ,$ic$
occ%rre! res%lte! in one o( t$e more color(%l events in
=$ili&&ine $istor'. 2$e 3D)# -evol%tion le! to t$e o%ster o(
18C
(ormer =res. Marcos an! &reci&itate! c$anges in t$e &olitical
climate. #n! being a (ig%re in t$ese !evelo&ments
&etitioner -o!rig%eB began serving $is $ome &rovince as
O*CDBoar! Member o( t$e )angg%niang =anlala,igan ng
W%eBon in 188G. 2$en $e ,as electe! Governor in 1888
an! contin%es to be involve! in &olitics in t$e same ca&acit'
as reDelecte! Governor in 188/ an! t$e !is&%te! reDelection
in 188C. #ltoget$er t$ese lan!mar+ !ates $em in (or
&etitioner a &erio! o( relentless intensive an! e4tensive
activit' o( varie! &olitical cam&aigns S (irst against t$e
Marcos government t$en (or t$e governors$i&. #n! serving
t$e &eo&le o( W%eBon &rovince as s%c$ t$e &osition entails
absol%te !e!ication o( oneHs time to t$e !eman!s o( t$e
o((ice.
"Having establis$e! &etitionerHs lac+ o( +no,le!ge o( t$e
c$arges to be (ile! against $im at t$e time $e le(t t$e @nite!
)tates it becomes immaterial %n!er s%c$ constr%ction to
!etermine t$e e4act time ,$en $e ,as ma!e a,are t$ereo(.
6$ile t$e la, as inter&rete! b' t$e )%&reme Co%rt !oes
not co%ntenance (lig$t (rom 9%stice in t$e instance t$at a
&erson (lees t$e 9%ris!iction o( anot$er state a(ter c$arges
against $im or a ,arrant (or $is arrest ,as iss%e! or even in
vie, o( t$e imminent (iling an! iss%ance o( t$e same
&etitionerHs &lig$t is altoget$er a !i((erent sit%ation. 6$en
in goo! (ait$ a &erson leaves t$e territor' o( a state not $is
o,n $ome,ar! bo%n! an! learns s%bse.%entl' o( c$arges
(ile! against $im ,$ile in t$e relative &eace an! service o(
$is o,n co%ntr' t$e (act t$at $e !oes not s%b9ect $imsel( to
t$e 9%ris!iction o( t$e (ormer state !oes not .%ali(' $im
o%trig$t as a (%gitive (rom 9%stice. 2$e severit' o( t$e la,
constr%e! in t$e manner as to re.%ire o( a &erson t$at $e
s%b9ect $imsel( to t$e 9%ris!iction o( anot$er state ,$ile
alrea!' in $is co%ntr' or else be !is.%ali(ie! (rom o((ice is
more a&&arent ,$en a&&lie! in &etitionerHs case. 2$e
criminal &rocess o( t$e @nite! )tates e4ten!s onl' ,it$in its
territorial 9%ris!iction. 2$at &etitioner $as alrea!' le(t sai!
co%ntr' ,$en t$e latter so%g$t to s%b9ect $im to its criminal
&rocess is $ar!l' &etitionerHs (a%lt. *n t$e absence o( an
intent to eva!e t$e la,s o( t$e @nite! )tates &etitioner $a!
ever' rig$t to !e&art t$ere(rom at t$e &recise time t$at $e
!i! an! to ret%rn to t$e =$ili&&ines. No 9%sti(iable reason
e4iste! to c%rtail or (etter &etitionerHs e4ercise o( $is rig$t to
leave t$e @nite! )tate an! ret%rn $ome. Hence s%staining
t$e contrar' &ro&osition ,o%l! be to %n!%l' b%r!en an!
&%nis$ &etitioner (or e4ercising a rig$t as $e cannot be
(a%lte! (or t$e circ%mstances t$at bro%g$t $im ,it$in
=$ili&&ine territor' at t$e time $e ,as so%g$t to be &lace!
%n!er arrest an! to ans,er (or c$arges (ile! against $im.
"*t m%st be note! t$at moral %&rig$tness is not a stan!ar!
too (arDreac$ing as to !eman! o( &olitical can!i!ate t$e
&er(ormance o( !%ties an! obligations t$at are
s%&ererogator' in nat%re. 6e !o not !is&%te t$at an allege!
H(%gitive (rom 9%sticeH m%st &er(orm acts in or!er not to be
so categoriBe!. Clearl' a &erson ,$o is a,are o( t$e
imminent (iling o( c$arges against $im or o( t$e same
alrea!' (ile! in connection ,it$ acts $e committe! in t$e
9%ris!iction o( a &artic%lar state is %n!er an obligation not to
(lee sai! &lace o( commission. Ho,ever as in &etitionerHs
case $is !e&art%re (rom t$e @nite! )tates ma' not &lace
$im %n!er a similar obligation. His s%bse.%ent +no,le!ge
,$ile in t$e =$ili&&ines an! nonDs%bmission to t$e
9%ris!iction o( t$e (ormer co%ntr' !oes not o&erate to label
&etitioner a%tomaticall' a (%gitive (rom 9%stice. #s $e ,as a
&%blic o((icer a&&ointe! an! electe! imme!iatel' a(ter $is
ret%rn to t$e co%ntr' &etitioner -o!rig%eB $a! ever' reason
to !evote %tmost &riorit' to t$e service o( $is o((ice. He
co%l! not $ave gone bac+ to t$e @nite! )tates in t$e mi!!le
o( $is term nor co%l! $e $ave travele! intermittentl' t$ereto
,it$o%t 9eo&ar!iBing t$e interest o( t$e &%blic $e serves. 2o
re.%ire t$at o( &etitioner ,o%l! be to &%t $im in a
&ara!o4ical .%an!ar' ,$ere $e is com&elle! to violate t$e
ver' (%nctions o( $is o((ice."
2o s%mmariBe t$e term "(%gitive (rom 9%stice" as a gro%n!
(or t$e !is.%ali(ication or ineligibilit' o( a &erson see+ing to
r%n (or an' elective local &osition %n!er )ection 05;e< o( t$e
LGC s$o%l! be %n!erstoo! accor!ing to t$e !e(inition given
in t$e M#-W@3Z Decision. *ntent to eva!e on t$e &art o( a
can!i!ate m%st t$ere(ore be establis$e! b' &roo( t$at t$ere
$as alrea!' been a conviction or at least a c$arge $as
alrea!' been (ile! at t$e time o( (lig$t. Not being a
"(%gitive (rom 9%stice" %n!er t$is !e(inition -o!rig%eB
cannot be !enie! t$e W%eBon =rovince g%bernatorial &ost.
*e La 'orre v. COM%L%C
18G
Facts: =etitioner -olan!o =. Dela 2orre via t$e instant &etition (or
certiorari see+s t$e n%lli(ication o( t,o resol%tions iss%e! b' t$e
COM3L3C allege!l' ,it$ grave ab%se o( !iscretion amo%nting to
lac+ o( 9%ris!iction in a case (or !is.%ali(ication (ile! against
&etitioner be(ore t$e COM3L3C. 2$e (irst assaile! resol%tion !ate!
Ma' G188C !eclare! t$e &etitioner !is.%ali(ie! (rom r%nning (or
t$e &osition o( Ma'or o( Cavinti Lag%na in t$e last Ma' 8188C
elections citing as t$e gro%n! t$ere(or )ection 05;a< o( t$e LGC
,$ic$ &rovi!es as (ollo,s: 2$e (ollo,ing &ersons are !is.%ali(ie!
(rom r%nning (or an' elective local &osition: ;a< 2$ose sentence!
b' (inal 9%!gment (or an o((ense involving moral t%r&it%!e or (or an
o((ense &%nis$able b' one ;1< 'ear or more o( im&risonment ,it$in
t,o ;/< 'ears a(ter serving sentence. *n !is.%ali('ing t$e &etitioner
t$e COM3L3C $el! t$at: Doc%mentar' evi!ence establis$e! t$at
$erein res&on!ent ;&etitioner< ,as (o%n! g%ilt' b' t$e M%nici&al
2rial Co%rt (or violation o( =.D. 1G1/ ;ot$er,ise +no,n as t$e #ntiD
(encing La,< in a Decision !ate! 7%ne 1 1885. -es&on!ent
a&&eale! t$e sai! conviction ,it$ t$e -egional 2rial Co%rt ,$ic$
$o,ever a((irme! res&on!ent>s conviction in a Decision !ate!
November 101885. -es&on!ent>s conviction became (inal on
7an%ar' 181881. 2$e secon! assaile! resol%tion !ate! #%g%st /8
188C !enie! &etitioner>s motion (or reconsi!eration. *n sai!
motion &etitioner claime! t$at )ection 05 ;a< o( t$e LGC !oes not
a&&l' to $is case inasm%c$ as t$e &robation grante! $im b' t$e
M2C on December /1 1880 ,$ic$ s%s&en!e! t$e e4ec%tion o( t$e
9%!gment o( conviction an! all ot$er legal conse.%ences (lo,ing
t$ere(rom ren!ere! ina&&licable )ection 05 ;a< as ,ell.U0V
*ss%es: 1. 6ON t$e crime o( (encing involves moral t%r&it%!e.
)ection 05 ;a<: E,$en t$e conviction b' (inal 9%!gment is (or
an o((ense involving moral t%r&it%!e.F #n! in t$is
connection t$e Co%rt $as consistentl' a!o&te! t$e
!e(inition in Blac+>s La, Dictionar' o( Emoral t%r&it%!eF as:
an act o( baseness vileness or !e&ravit' in t$e &rivate
!%ties ,$ic$ a man o,es $is (ello,men or to societ' in
general contrar' to t$e acce&te! an! c%stomar' r%le o(
rig$t an! !%t' bet,een man an! ,oman or con!%ct
contrar' to 9%stice $onest' mo!est' or goo! morals.
Not ever' criminal act $o,ever involves moral t%r&it%!e. *t
is (or t$is reason t$at Eas to ,$at crime involves moral
t%r&it%!e is (or t$e )%&reme Co%rt to !etermineF. *n
resolving t$e (oregoing .%estion t$e Co%rt is g%i!e! b' one
o( t$e general r%les t$at crimes mala in se involve moral
t%r&it%!e ,$ile crimes mala &ro$ibita !o not t$e rationale
o( ,$ic$ ,as set (ort$ in EZari v. FloresF to ,it: E*t ;moral
t%r&it%!e< im&lies somet$ing immoral in itsel( regar!less o(
t$e (act t$at it is &%nis$able b' la, or not. *t m%st not be
merel' mala &ro$ibita b%t t$e act itsel( m%st be in$erentl'
immoral. 2$e !oing o( t$e act itsel( an! not its &ro$ibition
b' stat%te (i4es t$e moral t%r&it%!e. Moral t%r&it%!e !oes
not $o,ever incl%!e s%c$ acts as are not o( t$emselves
immoral b%t ,$ose illegalit' lies in t$eir being &ositivel'
&ro$ibite!.F
2$is g%i!eline nonet$eless &rove! s$ort o( &rovi!ing a clearD
c%t sol%tion (or in E*nternational -ice -esearc$ *nstit%te v.
NL-C t$e Co%rt a!mitte! t$at it cannot al,a's be
ascertaine! ,$et$er moral t%r&it%!e !oes or !oes not e4ist
b' merel' classi('ing a crime as mal%m in se or as mal%m
&ro$ibit%m. 2$ere are crimes ,$ic$ are mala in se an! 'et
b%t rarel' involve moral t%r&it%!e an! t$ere are crimes
,$ic$ involve moral t%r&it%!e an! are mala &ro$ibita onl'.
*n t$e (inal anal'sis ,$et$er or not a crime involves moral
t%r&it%!e is %ltimatel' a .%estion o( (act an! (re.%entl'
!e&en!s on all t$e circ%mstances s%rro%n!ing t$e violation
o( t$e stat%te.
Fencing is !e(ine! in )ection / o( =.D.1G1/ ;#ntiDFencing
La,< as: t$e act o( an' &erson ,$o ,it$ intent to gain (or
$imsel( or (or anot$er s$all b%' receive &ossess +ee&
ac.%ire conceal sell or !is&ose o( or s$all b%' an! sell or
in an' manner !eal in an' article item ob9ect or an't$ing o(
val%e ,$ic$ $e +no,s or s$o%l! be +no,n to $im to $ave
been !erive! (rom t$e &rocee!s o( t$e crime o( robber' or
t$e(t.
3lements: 1. # crime o( robber' or t$e(t $as been
committe!A /. 2$e acc%se! ,$o is not a &rinci&al or
accom&lice in t$e crime o( robber' or t$e(t b%'s receives
&ossesses +ee&s ac.%ires conceals sells or !is&oses or
b%'s an! sells or in an' manner !eals in an' article item
ob9ect or an't$ing o( val%e ,$ic$ $ave been !erive! (rom
t$e &rocee!s o( t$e sai! crimeA 1. 2$e acc%se! +no,s or
s$o%l! $ave +no,n t$at t$e sai! article item ob9ect or
an't$ing o( val%e $as been !erive! (rom t$e &rocee!s o( t$e
187
crime o( robber' or t$e(tA an! 0. 2$ere is on t$e &art o( t$e
acc%se! intent to gain (or $imsel( or (or anot$er.
Moral t%r&it%!e is !e!%cible (rom t$e t$ir! element. #ct%al
+no,le!ge b' t$e E(enceF o( t$e (act t$at &ro&ert' receive!
is stolen !is&la's t$e same !egree o( malicio%s !e&rivation
o( one>s rig$t(%l &ro&ert' as t$at ,$ic$ animate! t$e
robber' or t$e(t ,$ic$ b' t$eir ver' nat%re are crimes o(
moral t%r&it%!e. #n! alt$o%g$ t$e &artici&ation o( eac$
(elon in t$e %nla,(%l ta+ing !i((ers in &oint in time an! in
!egree bot$ t$e E(enceF an! t$e act%al &er&etrator?s o( t$e
robber' or t$e(t inva!e! one>s &eace(%l !ominion (or gain D
t$%s !eliberatel' reneging in t$e &rocess E&rivate !%tiesF
t$e' o,e t$eir E(ello,menF or Esociet'F in a manner
Econtrar' to acce&te! an! c%stomar' r%le o( rig$t an! !%t'
9%stice $onest' or goo! morals.F 2$e !%t' not to
a&&ro&riate or to ret%rn an't$ing ac.%ire! eit$er b'
mista+e or ,it$ malice is so basic it (in!s e4&ression in some
+e' &rovisions o( t$e Civil Co!e on EH%man -elationsF an!
E)ol%tio *n!ebitiF
2$e same %n!erl'ing reason $ol!s even i( t$e E(enceF !i!
not $ave act%al +no,le!ge b%t merel' Es$o%l! $ave
+no,nF t$e origin o( t$e &ro&ert' receive!. *n t$is regar!
t$e Co%rt $el!: E6$en +no,le!ge o( t$e e4istence o( a
&artic%lar (act is an element o( t$e o((ense s%c$ +no,le!ge
is establis$e! i( a &erson is a,are o( t$e $ig$ &robabilit' o(
its e4istence %nless $e act%all' believes t$at it !oes not
e4ist. On t$e ot$er $an! t$e ,or!s ]s$o%l! +no,> !enote
t$e (act t$at a &erson o( reasonable &r%!ence an!
intelligence ,o%l! ascertain t$e (act in t$e &er(ormance o(
$is !%t' to anot$er or ,o%l! govern $is con!%ct %&on
ass%m&tion t$at s%c$ (act e4ists.F
/. 6ON a grant o( &robation a((ects )ection 05 ;a<>s
a&&licabilit'.
#nent t$e secon! iss%e ,$ere &etitioner conten!s t$at $is
&robation $a! t$e e((ect o( s%s&en!ing t$e a&&licabilit' o(
)ection 05 ;a< o( t$e LGC s%((ice it to sa' t$at t$e legal
e((ect o( &robation is onl' to s%s&en! t$e e4ec%tion o( t$e
sentence. =etitioner>s conviction o( (encing ,$ic$ ,e $ave
$ereto(ore !eclare! as a crime o( moral t%r&it%!e an! t$%s
(alling s.%arel' %n!er t$e !is.%ali(ication (o%n! in )ection
05 ;a< s%bsists an! remains totall' %na((ecte!
not,it$stan!ing t$e grant o( &robation. *n (act a 9%!gment
o( conviction in a criminal case i&so (acto attains (inalit'
,$en t$e acc%se! a&&lies (or &robation alt$o%g$ it is not
e4ec%tor' &en!ing resol%tion o( t$e a&&lication (or
&robation. Clearl' t$en &etitioner>s t$eor' $as no merit.
Magno v. COM%L%C
Facts: # case ,as (ile! b' &rivate res&on!ent on Marc$ /1 /551 (or
t$e !is.%ali(ication o( &etitioner Nestor Magno as ma'oralt'
can!i!ate o( )an *si!ro N%eva 3ci9a !%ring t$e Ma' 10 /551
elections on t$e gro%n! t$at &etitioner ,as &revio%sl' convicte! b'
t$e )an!iganba'an o( (o%r co%nts o( !irect briber' &enaliBe! %n!er
#rticle /15 o( t$e -evise! =enal Co!e. *t a&&ears t$at on 7%l' /C
188C &etitioner ,as sentence! to s%((er t$e in!eterminate &enalt'
o( 1 mont$s an! 11 !a's o( arresto ma'or as minim%m to 1 'ear 8
mont$s an! /1 !a's o( &rision correccional as ma4im%m (or eac$
o( t$e (o%r co%nts o( !irect briber'. 2$erea(ter &etitioner a&&lie!
(or &robation an! ,as !isc$arge! on Marc$ C 1888 %&on or!er o(
t$e -egional 2rial Co%rt o( Ga&an N%eva 3ci9a. On Ma' 7 /551 t$e
Commission on 3lections ;COM3L3C< ren!ere! a !ecision granting
t$e &etition o( &rivate res&on!ent an! !eclaring t$at &etitioner ,as
!is.%ali(ie! (rom r%nning (or t$e &osition o( ma'or in t$e Ma' 10
/551 elections base! on )ec 1/ o( t$e Omnib%s 3lection Co!e. On
Ma' 15 /551 &etitioner (ile! a motion (or reconsi!eration b%t t$e
same ,as !enie! b' t$e COM3L3C in its resol%tion !ate! Ma' 1/
/551. Hence t$is &etition.
*ss%e: 6ON &etitioner ,as !is.%ali(ie! to r%n (or ma'or in t$e /551
elections.
a. ,$et$er t$e crime o( !irect briber' involves moral t%r&it%!e
Moral 2%r&it%!e: an act o( baseness vileness or !e&ravit'
in t$e &rivate !%ties ,$ic$ a man o,es $is (ello, men or to
societ' in general contrar' to t$e acce&te! an! c%stomar'
r%le o( rig$t an! !%t' bet,een man an! ,oman or con!%ct
contrar' to 9%stice $onest' mo!est' or goo! morals.
;Blac+>s La,<
3lements o( Briber': 1. t$e o((en!er is a &%blic o((icerA /. t$e
o((en!er acce&ts an o((er or &romise or receives a gi(t or
&resent b' $imsel( or t$ro%g$ anot$erA 1. s%c$ o((er or
&romise be acce&te! or gi(t or &resent be receive! b' t$e
&%blic o((icer ,it$ a vie, to committing some crime or in
consi!eration o( t$e e4ec%tion o( an act ,$ic$ !oes not
constit%te a crime b%t t$e act m%st be %n9%st or to re(rain
188
(rom !oing somet$ing ,$ic$ it is $is o((icial !%t' to !oA an!
0. t$e act ,$ic$ t$e o((en!er agrees to &er(orm or ,$ic$ $e
e4ec%tes is connecte! ,it$ t$e &er(ormance o( $is o((icial
!%ties.
Moral t%r&it%!e can be in(erre! (rom t$e t$ir! element. 2$e
(act t$at t$e o((en!er agrees to acce&t a &romise or gi(t an!
!eliberatel' commits an %n9%st act or re(rains (rom
&er(orming an o((icial !%t' in e4c$ange (or some (avors
!enotes a malicio%s intent on t$e &art o( t$e o((en!er to
renege on t$e !%ties ,$ic$ $e o,es $is (ello,men an!
societ' in general. #lso t$e (act t$at t$e o((en!er ta+es
a!vantage o( $is o((ice an! &osition is a betra'al o( t$e tr%st
re&ose! on $im b' t$e &%blic. *t is a con!%ct clearl'
contrar' to t$e acce&te! r%les o( rig$t an! !%t' 9%stice
$onest' an! goo! morals. *n all res&ects !irect briber' is a
crime involving moral t%r&it%!e.
a. ,$et$er it is t$e Omnib%s 3lection Co!e or t$e LGC t$at
s$o%l! a&&l' in t$is sit%ation.
2$ere a&&ears to be a glaring incom&atibilit' bet,een t$e
(iveD'ear !is.%ali(ication &erio! &rovi!e! in )ec 1/ o( t$e
Omnib%s 3lection Co!e an! t$e t,oD'ear !is.%ali(ication
&erio! in )ec 05 o( t$e LGC. *t s$o%l! be note! t$at t$e
Omnib%s 3lection Co!e ;B= 881< ,as a&&rove! on
December 1 188C ,$ile t$e LGC ;-# 71G5< too+ e((ect on
7an%ar' 1 188/. *t is basic in stat%tor' constr%ction t$at in
case o( irreconcilable con(lict bet,een t,o la,s t$e later
enactment m%st &revail being t$e more recent e4&ression
o( legislative ,ill. Legis &osteriores &riores contrarias
abrogant. *n enacting t$e later la, t$e legislat%re is
&res%me! to $ave +no,le!ge o( t$e ol!er la, an! inten!e!
to c$ange it. F%rt$ermore t$e re&ealing cla%se o( )ection
C10 o( -# 71G5 or t$e LGC states t$at: ;(< #ll general an!
s&ecial la,s acts cit' c$arters !ecrees e4ec%tive or!ers
&roclamations an! a!ministrative reg%lations or &art or
&arts t$ereo( ,$ic$ are inconsistent ,it$ an' &rovisions o(
t$is Co!e are $ereb' re&eale! or mo!i(ie! accor!ingl'.
*n accor!ance t$ere,it$ )ection 05 o( -# 71G5 is !eeme!
to $ave re&eale! )ection 1/ o( B= 881. F%rt$ermore #rticle
7 o( t$e Civil Co!e &rovi!es t$at la,s are re&eale! onl' b'
s%bse.%ent ones an! not t$e ot$er ,a' aro%n!. 6$en a
s%bse.%ent la, entirel' encom&asses t$e s%b9ect matter o(
t$e (ormer enactment t$e latter is !eeme! re&eale!.
Davi! v. COM3L3C: -# 71G5 is a co!i(ie! set o( la,s t$at
s&eci(icall' a&&lies to local government %nits. )ection 05
t$ereo( s&eciall' an! !e(initivel' &rovi!es (or
!is.%ali(ications o( can!i!ates (or elective local &ositions. *t
is a&&licable to t$em onl'. On t$e ot$er $an! )ection 1/ o(
B= 881 s&ea+s o( !is.%ali(ications o( can!i!ates (or an'
&%blic o((ice. *t !eals ,it$ t$e election o( all &%blic o((icers.
2$%s )ection 05 o( -# 71G5 inso(ar as it governs t$e
!is.%ali(ications o( can!i!ates (or local &ositions ass%mes
t$e nat%re o( a s&ecial la, ,$ic$ o%g$t to &revail.
2$e intent o( t$e legislat%re to re!%ce t$e !is.%ali(ication
&erio! o( can!i!ates (or local &ositions (rom (ive to t,o
'ears is evi!ent. 2$e car!inal r%le in t$e inter&retation o( all
la,s is to ascertain an! give e((ect to t$e intent o( t$e la,.
2$e re!%ction o( t$e !is.%ali(ication &erio! (rom (ive to t,o
'ears is t$e mani(est intent.
2$ere(ore alt$o%g$ $is crime o( !irect briber' involve!
moral t%r&it%!e &etitioner nonet$eless co%l! not be
!is.%ali(ie! (rom r%nning in t$e /551 elections. #rticle 1/ o(
t$e Omnib%s 3lection Co!e ;B= 881< m%st 'iel! to #rticle 05
o( t$e LGC. =etitioner>s !is.%ali(ication cease! as o( Marc$
C /555 an! $e ,as t$ere(ore %n!er no s%c$ !is.%ali(ication
an'more ,$en $e ran (or ma'or o( )an *si!ro N%eva 3ci9a in
t$e Ma' 10 /551 elections.
Lingating v. COM%L%C
Facts: Mig%el M. Lingating (ile! a !is.%ali(ication case against
res&on!ent Cesar B. )%long as can!i!ate (or ma'or o( La&%'an
Zamboanga !el )%r in t$e Ma' 10 /551 elections &%rs%ant to
c05;b< o( t$e LGC ,$ic$ !is.%ali(ies (rom r%nning (or an' elective
local &osition Et$ose remove! (rom o((ice as a res%lt o( an
a!ministrative case. *t a&&ears t$at res&on!ent )%long $a!
&revio%sl' ,on as ma'or o( La&%'an on 7an%ar' 18 1888. *n t$e
Ma' 11 188/ an! again in t$e Ma' 8 188C elections $e ,as
reelecte!. *n a &etition (or !is.%ali(ication &etitioner allege! t$at in
1881 !%ring $is (irst term as ma'or o( La&%'an res&on!ent
)%long along ,it$ a m%nici&al co%ncilor o( La&%'an an! several
ot$er in!ivi!%als ,as a!ministrativel' c$arge! ,it$ vario%s
o((enses an! t$at on Febr%ar' 0 188/ t$e )angg%niang
=anlala,igan o( Zamboanga !el )%r (o%n! $im g%ilt' o( t$e c$arges
an! or!ere! $is removal (rom o((ice. =etitioner claime! t$at t$is
!ecision $a! become (inal an! e4ec%tor' an! conse.%entl' t$e
188
t$en viceDma'or o( La&%'an Kicente *mbing too+ $is oat$ as
ma'or vice res&on!ent )%long on Marc$ 1 188/. -es&on!ent
)%long !enie! t$at t$e !ecision in #C No. 1/D81 $a! become (inal
an! e4ec%tor'. He averre! t$at a(ter receiving a co&' o( t$e
!ecision on Febr%ar' 17 188/ $e (ile! a motion (or reconsi!eration
an!?or notice o( a&&eal t$ereo( on Febr%ar' 18 188/A t$at on
Febr%ar' /7 188/ t$e )angg%niang =anlala,igan re.%ire! 7im
Lingating t$e com&lainant in #C No. 1/D81 to comment on
res&on!ent )%long>s motion (or reconsi!eration an!?or notice o(
a&&ealA t$at t$e sai! com&lainant $a! not 'et com&lie! t$ere,it$
an! $is ;res&on!ent )%long>s< motion $a! conse.%entl' remaine!
&en!ing. -es&on!ent )%long !enie! $e $a! been remove! (rom
o((ice b' virt%e o( t$e !ecision in #C No. 1/D81. #(ter t$e &arties
$a! (ile! t$eir memoran!a t$e case ,as s%bmitte! (or resol%tion.
Beca%se t$e COM3L3C ,as %nable to ren!er 9%!gment be(ore t$e
elections o( Ma' 10 /551 res&on!ent )%long ,as vote! (or in t$e
elections receiving 088/ votes as against t$e 1G11 votes (or
&etitioner. On Ma' 1G /551 res&on!ent )%long ,as &roclaime!
b' t$e M%nici&al Boar! o( Canvassers o( La&%'an as t$e !%l'
electe! ma'or o( t$at m%nici&alit'. *n a resol%tion !ate! #%g%st 1
/551 t$e COM3L3C>s First Division !eclare! res&on!ent Cesar B.
)%long !is.%ali(ie!. -es&on!ent )%long (ile! a motion (or
reconsi!eration citing a certi(ication !ate! #%g%st 7 /551 o(
=rovincial )ecretar' o( Zamboanga !el )%r ;O*C< 6il(re!o
Cima(ranca t$at t$e !ecision in #C No. 1/D81 E$as not become (inal
an! e4ec%tor' as t$e (inal !is&osition t$ereo( ,as overta+en b' t$e
local elections o( Ma' 188/.F He reiterate! $is claim t$at at no
time $a! $e been remove! b' virt%e o( t$e sai! !ecision. =etitioner
(ile! an o&&osition conten!ing among ot$er t$ings t$at t$e (act
t$at Zamboanga !el )%r Governor #riosa $a! or!ere! t$e
en(orcement o( t$e !ecision signi(ie! t$at res&on!ent )%long>s
motion (or reconsi!eration an!?or notice o( a&&eal $a! not been
given !%e co%rse b' t$e )angg%niang =anlala,iganA an! t$at
res&on!ent )%long>s claim t$at $e $a! not been remove! (rom
o((ice ,as belie! b' t$e (act t$at $e ;res&on!ent )%long< bro%g$t
c$arges against Kicente *mbing (or @s%r&ation o( O((icial F%nctions
;*.). No. 8/D1C< in s%&&ort o( ,$ic$ res&on!ent )%long atteste!
%n!er oat$ t$at *mbing $a! s%ccee!e! $im as ma'or o( La&%'an. *n
a se&arate motion &etitioner &ra'e! t$at t$e resol%tion o( #%g%st
1 /551 be e4ec%te! an! t$at $e be installe! as ma'or o( La&%'an
in vie, o( &rivate res&on!ent>s !is.%ali(ication. On #%g%st 15
/551 t$e COM3L3C>s First Division !enie! &etitioner>s motion (or
e4ec%tion on t$e gro%n! t$at t$e !is.%ali(ication o( an electe!
$ig$est n%mber o( votes to occ%&' t$e o((ice vacate!. =etitioner
t$en (ile! a motion (or reconsi!eration o( t$is or!er. On #&ril 0
/55/ t$e COM3L3C en banc iss%e! its resol%tion s%b9ect o( t$e
&etition in t$is case reversing t$e resol%tion !ate! #%g%st 1
/551 o( its First Division inso(ar as it (o%n! res&on!ent )%long
!is.%ali(ie! (rom r%nning as ma'or. *n t$e Ma' 188/ elections
res&on!ent )%long ,as reDelecte! ma'or o( La&%'an Zamboanga
!el )%r !es&ite t$e !ecision o( t$e )angg%niang !ismissing $im
(rom o((ice. *n t$e 188C Ma' elections res&on!ent )%long ran an!
,on t$e ma'oralt' elections o( La&%'an Zamboanga !el )%r. 2$e
COM3L3C en banc also r%le! t$at in an' event res&on!ent )%long
,as not entitle! to occ%&' t$e o((ice t$%s vacate!. Hence t$is
&etition b' Lingating.
*ss%e: 6ON an elective local e4ec%tive o((icer ,$o is remove!
be(ore t$e e4&iration o( t$e term (or ,$ic$ $e ,as electe! is
!is.%ali(ie! (rom being a can!i!ate (or a local elective &osition
%n!er c05;b< o( t$e LGC.
-e'es case: =etitioner invo+es t$e r%ling in #g%inal!o v.
COM3L3C in ,$ic$ it ,as $el! t$at a &%blic o((icial co%l! not
be remove! (or miscon!%ct committe! !%ring a &rior term
an! t$at $is reelection o&erate! as a con!onation o( t$e
o((icer>s &revio%s miscon!%ct to t$e e4tent o( c%tting o(( t$e
rig$t to remove $im t$ere(or. B%t t$at ,as beca%se in t$at
case be(ore t$e &etition .%estioning t$e vali!it' o( t$e
a!ministrative !ecision removing &etitioner co%l! be
!eci!e! t$e term o( o((ice !%ring ,$ic$ t$e allege!
miscon!%ct ,as committe! e4&ire!. -emoval cannot e4ten!
be'on! t$e term !%ring ,$ic$ t$e allege! miscon!%ct ,as
committe!. *( a &%blic o((icial is not remove! be(ore $is
term o( o((ice e4&ires $e can no longer be remove! i( $e is
t$erea(ter reelecte! U(orV anot$er term. 2$is is t$e rationale
(or t$e r%ling in t$e t,o #g%inal!o cases. 2$e case at bar is
t$e ver' o&&osite o( t$ose cases. Here . . . t$e !ecision in
t$e a!ministrative case . . . ,as serve! on &etitioner an!
it t$erea(ter became (inal on #&ril 1 188C beca%se
&etitioner (aile! to a&&eal to t$e O((ice o( t$e =resi!ent. He
,as t$%s vali!l' remove! (rom o((ice an! &%rs%ant to
c05;b< o( t$e LGC $e ,as !is.%ali(ie! (rom r%nning (or
reelection.
*t is note,ort$' t$at at t$e time t$e #g%inal!o cases ,ere
!eci!e! t$ere ,as no &rovision similar to c05;b< ,$ic$
185
!is.%ali(ies an' &erson (rom r%nning (or an' elective
&osition on t$e gro%n! t$at $e $as been remove! as a res%lt
o( an a!ministrative case. 2$e LGC o( 1881 ;-.#. No. 71G5<
co%l! not be given retroactive e((ect.
Ho,ever -e'es cannot be a&&lie! to t$is case beca%se it
a&&ears t$at t$e 188/ !ecision o( t$e )angg%niang
=anlala,igan (in!ing res&on!ent )%long g%ilt' o(
!is$onest' (alsi(ication an! malversation o( &%blic (%n!s
$as not %ntil no, become (inal. 2$e recor!s o( t$is case
s$o, t$at t$e )angg%niang =anlala,igan o( Zamboanga !el
)%r ren!ere! 9%!gment in #C No. 1/D81 on Febr%ar' 0
188/ a co&' o( ,$ic$ ,as receive! b' res&on!ent )%long
on Febr%ar' 17 188/A t$at on Febr%ar' 18 188/ $e (ile! a
Emotion (or reconsi!eration an!?or notice o( a&&ealAF t$at on
Febr%ar' /7 188/ t$e )angg%niang =anlala,igan re.%ire!
7im Lingating t$e com&lainant in #C No. 1/D81 to commentA
an! t$at t$e com&lainant in #C No. 1/D81 $as not (ile! a
comment nor $as t$e )angg%niang =anlala,igan resolve!
res&on!ent>s motion. 2$e (iling o( $is motion (or
reconsi!eration &revente! t$e !ecision o( )angg%niang
=anlala,igan (rom becoming (inal.
6$ile -.#. No. 71G5 on !isci&linar' actions is silent on t$e
(iling o( a motion (or reconsi!eration t$e same cannot be
inter&rete! as a &ro$ibition against t$e (iling o( a motion (or
reconsi!eration. 2$%s it ,as $el!U1CV t$at a &art' in a
!isbarment &rocee!ing %n!er -%le 118DB c1/;c< can move
(or a reconsi!eration o( a resol%tion o( t$e *ntegrate! Bar o(
t$e =$ili&&ines alt$o%g$ -%le 118DB !oes not so &rovi!e:
#lt$o%g$ -%le 118DB c1/;c< ma+es no mention o( a motion
(or reconsi!eration not$ing in its te4t or $istor' s%ggests
t$at s%c$ motion is &ro$ibite!. *t ma' t$ere(ore be (ile! . . . .
*n!ee! t$e (iling o( s%c$ motion s$o%l! be enco%rage!
be(ore Uan a&&eal isV resortUe!V to . . . as a matter o(
e4$a%stion o( a!ministrative reme!ies to a((or! t$e agenc'
ren!ering t$e 9%!gment UanV o&&ort%nit' to correct an' error
it ma' $ave committe! t$ro%g$ a misa&&re$ension o( (acts
or misa&&reciation o( evi!ence.
2$ere is t$%s no !ecision (in!ing res&on!ent g%ilt' to s&ea+
o(. #s =rovincial )ecretar' o( Zamboanga !el )%r 6il(re!o
Cima(ranca atteste! t$e )angg%niang =anlala,igan sim&l'
consi!ere! t$e matter as $aving become moot an!
aca!emic beca%se it ,as Eoverta+en b' t$e local elections
o( Ma' U11V188/.F
Neit$er can t$e s%ccession o( t$e t$en viceDma'or o(
La&%'an Kicente *mbing an! t$e $ig$est ran+ing m%nici&al
co%ncilor o( La&%'an -omeo 2an to t$e o((ices o( ma'or
an! viceDma'or res&ectivel' be consi!ere! &roo( t$at t$e
!ecision in #C No. 1/D81 $a! become (inal beca%se it
a&&ears to $ave been ma!e &%rs%ant to cG8U1GV o( t$e LGC
,$ic$ ma+es !ecisions in a!ministrative cases imme!iatel'
e4ec%tor'.
*n!ee! consi!ering t$e (ail%re o( t$e )angg%niang
=anlala,igan to resolve res&on!ent>s motion it is %n(air to
t$e electorate to be tol! a(ter t$e' $ave vote! (or
res&on!ent )%long t$at a(ter all $e is !is.%ali(ie! es&eciall'
since at t$e time o( t$e elections on Ma' 10 /551 t$e
!ecision o( t$e )angg%niang =anlala,igan $a! been
ren!ere! nearl' ten 'ears ago.
Having come to t$e concl%sion t$at res&on!ent )%long is
not !is.%ali(ie! (rom $ol!ing t$e &osition o( ma'or o(
La&%'an it is %nnecessar' to &ass %&on &etitioner>s
contention t$at as t$e can!i!ate ,$o obtaine! t$e secon!
$ig$est n%mber o( votes $e is entitle! to be installe! as
ma'or beca%se t$e votes cast in (avor o( res&on!ent )%long
,ere voi!.
&lores v. COM%L%C
Facts: 2$e constit%tionalit' o( )ec. 11 &ar. ;!< o( -.#. 7//7
ot$er,ise +no,n as t$e "Bases Conversion an! Develo&ment #ct o(
188/" %n!er ,$ic$ res&on!ent Ma'or -ic$ar! 7. Gor!on o(
Olonga&o Cit' ,as a&&ointe! C$airman an! C$ie( 34ec%tive O((icer
o( t$e )%bic Ba' Metro&olitan #%t$orit' ;)BM#< is c$allenge! in
t$is original &etition ,it$ &ra'er (or &ro$ibition &reliminar'
in9%nction an! tem&orar' restraining or!er "to &revent %seless an!
%nnecessar' e4&en!it%res o( &%blic (%n!s b' ,a' o( salaries an!
ot$er o&erational e4&enses attac$e! to t$e o((ice . . . ." =aragra&$
;!< rea!s: C$airman a!ministrator S 2$e =resi!ent s$all a&&oint a
&ro(essional manager as a!ministrator o( t$e )%bic #%t$orit' ,it$ a
com&ensation to be !etermine! b' t$e Boar! s%b9ect to t$e
a&&roval o( t$e )ecretar' o( B%!get ,$o s$all be t$e e4 o(icio
c$airman o( t$e Boar! an! ,$o s$all serve as t$e c$ie( e4ec%tive
o((icer o( t$e )%bic #%t$orit': =rovi!e! $o,ever 2$at (or t$e (irst
181
'ear o( its o&erations (rom t$e e((ectivit' o( t$is #ct t$e ma'or o(
t$e Cit' o( Olonga&o s$all be a&&ointe! as t$e c$airman an! c$ie(
e4ec%tive o((icer o( t$e )%bic #%t$orit'. =etitioners ,$o claim to be
ta4&a'ers em&lo'ees o( t$e @.). Facilit' at t$e )%bic Zambales
an! o((icers an! members o( t$e Fili&ino Civilian 3m&lo'ees
#ssociation in @.). Facilities in t$e =$ili&&ines maintain t$at t$e
&roviso in &ar. ;!< o( )ec. 11 in(ringes on t$e (ollo,ing
constit%tional an! stat%tor' &rovisions: ;a< )ec. 7 (irst &ar. #rt. *JD
B o( t$e Constit%tion ,$ic$ states t$at "UnVo elective o((icial s$all
be eligible (or a&&ointment or !esignation in an' ca&acit' to an'
&%blic o((icer or &osition !%ring $is ten%re" beca%se t$e Cit' Ma'or
o( Olonga&o Cit' is an elective o((icial an! t$e s%b9ect &osts are
&%blic o((icesA ;b< )ec. 1G #rt. K** o( t$e Constit%tion ,$ic$
&rovi!es t$at "UtV$e =resi!ent s$all . . . . a&&oint all ot$er o((icers o(
t$e Government ,$ose a&&ointments are not ot$er,ise &rovi!e!
(or b' la, an! t$ose ,$om $e ma' be a%t$oriBe! b' la, to
a&&oint" since it ,as Congress t$ro%g$ t$e .%estione! &roviso an!
not t$e =resi!ent ,$o a&&ointe! t$e Ma'or to t$e s%b9ect &ostsA
an! ;c< )ec. /G1 &ar. ;g< o( t$e Omnib%s 3lection Co!e ,$ic$
sa's: )ec. /G1. =ro$ibite! #cts. S 2$e (ollo,ing s$all be g%ilt' o(
an election o((ense: . . . ;g< #&&ointment o( ne, em&lo'ees
creation o( ne, &osition &romotion or giving salar' increases. S
D%ring t$e &erio! o( (ort'D(ive !a's be(ore a reg%lar election an!
t$irt' !a's be(ore a s&ecial election ;1< an' $ea! o((icial or
a&&ointing o((icer o( a government o((ice agenc' or
instr%mentalit' ,$et$er national or local incl%!ing governmentD
o,ne! or controlle! cor&orations ,$o a&&oints or $ires an' ne,
em&lo'ee ,$et$er &rovisional tem&orar' or cas%al or creates an!
(ills an' ne, &osition e4ce&t %&on &rior a%t$orit' o( t$e
Commission. 2$e Commission s$all not grant t$e a%t$orit' so%g$t
%nless it is satis(ie! t$at t$e &osition to be (ille! is essential to t$e
&ro&er (%nctioning o( t$e o((ice or agenc' concerne! an! t$at t$e
&osition s$all not be (ille! in a manner t$at ma' in(l%ence t$e
election. #s an e4ce&tion to t$e (oregoing &rovisions a ne,
em&lo'ee ma' be a&&ointe! in case o( %rgent nee!: =rovi!e!
$o,ever 2$at notice o( t$e a&&ointment s$all be given to t$e
Commission ,it$in t$ree !a's (rom t$e !ate o( t$e a&&ointment.
#n' a&&ointment or $iring in violation o( t$is &rovision s$all be n%ll
an! voi!. ;/< #n' government o((icial ,$o &romotes or gives an'
increase o( salar' or rem%neration or &rivilege to an' government
o((icial or em&lo'ee incl%!ing t$ose in governmentDo,ne! or
controlle! cor&orations . . . .(or t$e reason t$at t$e a&&ointment o(
res&on!ent Gor!on to t$e s%b9ect &osts ma!e b' res&on!ent
34ec%tive )ecretar' on 1 #&ril 188/ ,as ,it$in t$e &ro$ibite! 0CD
!a' &erio! &rior to t$e 11 Ma' 188/ 3lections.
*ss%e: 6ON &roviso in )ec. 11 &ar. ;!< o( -.#. 7//7 ,$ic$ states
"=rovi!e! $o,ever 2$at (or t$e (irst 'ear o( its o&erations (rom t$e
e((ectivit' o( t$is #ct t$e ma'or o( t$e Cit' o( Olonga&o s$all be
a&&ointe! as t$e c$airman an! c$ie( e4ec%tive o((icer o( t$e )%bic
#%t$orit'" violates t$e constit%tional &roscri&tion against
a&&ointment or !esignation o( elective o((icials to ot$er
government &osts.
)ec. 7 o( #rt. *JDB o( t$e Constit%tion:No elective o((icial
s$all be eligible (or a&&ointment or !esignation in an'
ca&acit' to an' &%blic o((ice or &osition !%ring $is ten%re.
@nless ot$er,ise allo,e! b' la, or b' t$e &rimar' (%nctions
o( $is &osition no a&&ointive o((icial s$all $ol! an' ot$er
o((ice or em&lo'ment in t$e Government or an' s%b!ivision
agenc' or instr%mentalit' t$ereo( incl%!ing governmentD
o,ne! or controlle! cor&orations or t$eir s%bsi!iaries.
2$e section e4&resses t$e &olic' against t$e concentration
o( several &%blic &ositions in one &erson so t$at a &%blic
o((icer or em&lo'ee ma' serve (%llDtime ,it$ !e!ication an!
t$%s be e((icient in t$e !eliver' o( &%blic services. *t is an
a((irmation t$at a &%blic o((ice is a (%llDtime 9ob. Hence a
&%blic o((icer or em&lo'ee li+e t$e $ea! o( an e4ec%tive
!e&artment !escribe! in Civil Liberties @nion v. 34ec%tive
)ecretar' G.-. No. 8188G an! #ntiDGra(t Leag%e o( t$e
=$ili&&ines *nc. v. =$ili& 3lla C. 7%ico as )ecretar' o(
#grarian -e(orm G.-. No. 8181C G ". . . . s$o%l! be allo,e!
to atten! to $is !%ties an! res&onsibilities ,it$o%t t$e
!istraction o( ot$er governmental !%ties or em&lo'ment. He
s$o%l! be &recl%!e! (rom !issi&ating $is e((orts attention
an! energ' among too man' &ositions o( res&onsibilit'
,$ic$ ma' res%lt in $a&$aBar!ness an! ine((icienc' . . . ."
*n t$e case be(ore %s t$e s%b9ect &roviso !irects t$e
=resi!ent to a&&oint an elective o((icial i.e. t$e Ma'or o(
Olonga&o Cit' to ot$er government &osts ;as C$airman o(
t$e Boar! an! C$ie( 34ec%tive O((icer o( )BM#<. )ince t$is is
&recisel' ,$at t$e constit%tional &roscri&tion see+s to
&revent it nee!s no stretc$ing o( t$e imagination to
concl%!e t$at t$e &roviso contravenes )ec. 7 (irst &ar. #rt.
*JDB o( t$e Constit%tion. Here t$e (act t$at t$e e4&ertise o(
18/
an elective o((icial ma' be most bene(icial to t$e $ig$er
interest o( t$e bo!' &olitic is o( no moment.
*t is arg%e! t$at )ec. 80 o( t$e LGC ;LGC< &ermits t$e
a&&ointment o( a local elective o((icial to anot$er &ost i( so
allo,e! b' la, or b' t$e &rimar' (%nctions o( $is o((ice. 8
B%t t$e contention is (allacio%s. )ection 80 o( t$e LGC is not
!eterminative o( t$e constit%tionalit' o( )ec. 11 &ar. ;!< o(
-.#. 7//7 (or no legislative act can &revail over t$e
(%n!amental la, o( t$e lan!. Moreover since t$e
constit%tionalit' o( )ec. 80 o( LGC is not t$e iss%e $ere nor
is t$at section so%g$t to be !eclare! %nconstit%tional ,e
nee! not r%le on its vali!it'. Neit$er can ,e invo+e a
&ractice ot$er,ise %nconstit%tional as a%t$orit' (or its
vali!it'.
*n an' case t$e vie, t$at an elective o((icial ma' be
a&&ointe! to anot$er &ost i( allo,e! b' la, or b' t$e
&rimar' (%nctions o( $is o((ice ignores t$e clearDc%t
!i((erence in t$e ,or!ing o( t$e t,o ;/< &aragra&$s o( )ec.
7 #rt. JDB o( t$e Constit%tion. 6$ile t$e secon! &aragra&$
a%t$oriBes $ol!ing o( m%lti&le o((ices b' an a&&ointive
o((icial ,$en allo,e! b' la, or b' t$e &rimar' (%nctions o(
$is &osition t$e (irst &aragra&$ a&&ears to be more
stringent b' not &rovi!ing an' e4ce&tion to t$e r%le against
a&&ointment or !esignation o( an elective o((icial to t$e
government &ost e4ce&t as are &artic%larl' recogniBe! in
t$e Constit%tion itsel( e.g. t$e =resi!ent as $ea! o( t$e
economic an! &lanning agenc'A 8 t$e KiceD=resi!ent ,$o
ma' be a&&ointe! Member o( t$e CabinetA 15 an! a
member o( Congress ,$o ma' be !esignate! e4 o((icio
member o( t$e 7%!icial an! Bar Co%ncil.
2$e !istinction bet,een t$e (irst an! secon! &aragra&$s o(
)ec. 7 #rt. *JDB ,as not acci!ental ,$en !ra,n an! not
,it$o%t reason. *t ,as &%r&osel' so%g$t b' t$e !ra(ters o(
t$e Constit%tion as s$o,n in t$eir !eliberation t$%s S M-.
MON)OD. *n ot$er ,or!s ,$at t$en Commissioner is
sa'ing Mr. =resi!ing O((icer is t$at t$e &ro$ibition is more
strict ,it$ res&ect to elective o((icials beca%se in t$e case
o( a&&ointive o((icials t$ere ma' be a la, t$at ,ill allo,
t$em to $ol! ot$er &ositions. M-. FOZ. :es * s%ggest ,e
ma+e t$at !i((erence beca%se in t$e case o( a&&ointive
o((icials t$ere ,ill be certain sit%ations ,$ere t$e la,
s$o%l! allo, t$em to $ol! some ot$er &ositions. 2$e
!istinction being clear t$e e4em&tion allo,e! to a&&ointive
o((icials in t$e secon! &aragra&$ cannot be e4ten!e! to
elective o((icials ,$o are governe! b' t$e (irst &aragra&$.
*t is (%rt$er arg%e! t$at t$e )BM# &osts are merel' e4 o((icio
to t$e &osition o( Ma'or o( Olonga&o Cit' $ence an
e4ce&te! circ%mstance citing Civil Liberties @nion v.
34ec%tive )ecretar' ,$ere ,e state! t$at t$e &ro$ibition
against t$e $ol!ing o( an' ot$er o((ice or em&lo'ment b'
t$e =resi!ent KiceD=resi!ent Members o( t$e Cabinet an!
t$eir !e&%ties or assistants !%ring t$eir ten%re as &rovi!e!
in )ec. 11 #rt. K** o( t$e Constit%tion !oes not com&re$en!
a!!itional !%ties an! (%nctions re.%ire! b' t$e &rimar'
(%nctions o( t$e o((icials concerne! ,$o are to &er(orm
t$em in an e4 o((icio ca&acit' as &rovi!e! b' la, ,it$o%t
receiving an' a!!itional com&ensation t$ere(or.
2$is arg%ment is a&&arentl' base! on a ,rong &remise.
Congress !i! not contem&late ma+ing t$e s%b9ect )BM#
&osts as e4 o((icio or a%tomaticall' attac$e! to t$e O((ice o(
t$e Ma'or o( Olonga&o Cit' ,it$o%t nee! o( a&&ointment.
2$e &$rase "s$all be a&&ointe!" %n.%estionabl' s$o,s t$e
intent to ma+e t$e )BM# &osts a&&ointive an! not merel'
a!9%nct to t$e &ost o( Ma'or o( Olonga&o Cit'. Ha! it been
t$e legislative intent to ma+e t$e s%b9ect &ositions e4
o((icio Congress ,o%l! $ave at least avoi!e! t$e ,or!
"a&&ointe!" an! instea! "e4 o((icio" ,o%l! $ave been %se!.
3ven in t$e )enate !eliberations t$e )enators ,ere (%ll'
a,are t$at s%b9ect &roviso ma' contravene )ec. 7 (irst &ar.
#rt. *JDB b%t t$e' nevert$eless &asse! t$e bill an! !eci!e!
to $ave t$e controvers' resolve! b' t$e co%rts. *n!ee! t$e
)enators ,o%l! not $ave been concerne! ,it$ t$e e((ects o(
)ec. 7 (irst &ar. $a! t$e' consi!ere! t$e )BM# &osts as e4
o((icio.
=etitioners also assail t$e legislative encroac$ment on t$e
a&&ointing a%t$orit' o( t$e =resi!ent. )ection 11 &ar. ;!<
itsel( vests in t$e =resi!ent t$e &o,er to a&&oint t$e
C$airman o( t$e Boar! an! t$e C$ie( 34ec%tive O((icer o(
)BM# alt$o%g$ $e reall' $as no c$oice %n!er t$e la, b%t to
a&&oint t$e Ma'or o( Olonga&o Cit'.
#s ma' be !e(ine! an "a&&ointment" is "UtV$e !esignation
o( a &erson b' t$e &erson or &ersons $aving a%t$orit'
t$ere(or to !isc$arge t$e !%ties o( some o((ice or tr%st" 17
or "UtV$e selection or !esignation o( a &erson b' t$e &erson
181
or &ersons $aving a%t$orit' t$ere(or to (ill an o((ice or
&%blic (%nction an! !isc$arge t$e !%ties o( t$e same. *n $is
treatise =$ili&&ine =olitical La, )enior #ssociate 7%stice
*sagani #. Cr%B !e(ines a&&ointment as "t$e selection b'
t$e a%t$orit' veste! ,it$ t$e &o,er o( an in!ivi!%al ,$o is
to e4ercise t$e (%nctions o( a given o((ice." Consi!ering t$at
a&&ointment calls (or a selection t$e a&&ointing &o,er
necessaril' e4ercises a !iscretion. #ccor!ing to 6oo!b%r'
7. "t$e c$oice o( a &erson to (ill an o((ice constit%tes t$e
essence o( $is a&&ointment" an! Mr. 7%stice Malcolm a!!s
t$at an "UaV&&ointment to o((ice is intrinsicall' an e4ec%tive
act involving t$e e4ercise o( !iscretion."
=amantasan ng L%ngso! ng Ma'nila v. *nterme!iate
#&&ellate Co%rt: 2$e &o,er to a&&oint is in essence
!iscretionar'. 2$e a&&ointing &o,er $as t$e rig$t o( c$oice
,$ic$ $e ma' e4ercise (reel' accor!ing to $is 9%!gment
!eci!ing (or $imsel( ,$o is best .%ali(ie! among t$ose ,$o
$ave t$e necessar' .%ali(ications an! eligibilities. *t is a
&rerogative o( t$e a&&ointing &o,er
6$en Congress clot$es t$e =resi!ent ,it$ t$e &o,er to
a&&oint an o((icer it ;Congress< cannot at t$e same time
limit t$e c$oice o( t$e =resi!ent to onl' one can!i!ate. Once
t$e &o,er o( a&&ointment is con(erre! on t$e =resi!ent
s%c$ con(erment necessaril' carries t$e !iscretion o( ,$om
to a&&oint. 3ven on t$e &rete4t o( &rescribing t$e
.%ali(ications o( t$e o((icer Congress ma' not ab%se s%c$
&o,er as to !ivest t$e a&&ointing a%t$orit' !irectl' or
in!irectl' o( $is !iscretion to &ic+ $is o,n c$oice.
Conse.%entl' ,$en t$e .%ali(ications &rescribe! b'
Congress can onl' be met b' one in!ivi!%al s%c$
enactment e((ectivel' eliminates t$e !iscretion o( t$e
a&&ointing &o,er to c$oose an! constit%tes an irreg%lar
restriction on t$e &o,er o( a&&ointment.
*n t$e case at bar ,$ile Congress ,ille! t$at t$e s%b9ect
&osts be (ille! ,it$ a &resi!ential a&&ointee (or t$e (irst 'ear
o( its o&erations (rom t$e e((ectivit' o( -.#. 7//7 t$e
&roviso nevert$eless limits t$e a&&ointing a%t$orit' to onl'
one eligible i.e. t$e inc%mbent Ma'or o( Olonga&o Cit'.
)ince onl' one can .%ali(' (or t$e &osts in .%estion t$e
=resi!ent is &recl%!e! (rom e4ercising $is !iscretion to
c$oose ,$om to a&&oint. )%c$ s%&&ose! &o,er o(
a&&ointment sans t$e essential element o( c$oice is no
&o,er at all an! goes against t$e ver' nat%re itsel( o(
a&&ointment. 6$ile it ma' be vie,e! t$at t$e &roviso
merel' sets t$e .%ali(ications o( t$e o((icer !%ring t$e (irst
'ear o( o&erations o( )BM# i.e. $e m%st be t$e Ma'or o(
Olonga&o Cit' it is mani(estl' an ab%se o( congressional
a%t$orit' to &rescribe .%ali(ications ,$ere onl' one an! no
ot$er can .%ali('. #ccor!ingl' ,$ile t$e con(erment o( t$e
a&&ointing &o,er on t$e =resi!ent is a &er(ectl' vali!
legislative act t$e &roviso limiting $is c$oice to one is
certainl' an encroac$ment on $is &rerogative.
)ince t$e ineligibilit' o( an elective o((icial (or a&&ointment
remains all t$ro%g$o%t $is ten%re or !%ring $is inc%mbenc'
$e ma' $o,ever resign (irst (rom $is elective &ost to cast o((
t$e constit%tionall'Dattac$e! !is.%ali(ication be(ore $e ma'
be consi!ere! (it (or a&&ointment. #s long as $e is an
inc%mbent an elective o((icial remains ineligible (or
a&&ointment to anot$er &%blic o((ice.
6$ere as in t$e case o( res&on!ent Gor!on an inc%mbent
elective o((icial ,as not,it$stan!ing $is ineligibilit'
a&&ointe! to ot$er government &osts $e !oes not
a%tomaticall' (or(eit $is elective o((ice nor remove $is
ineligibilit' im&ose! b' t$e Constit%tion. On t$e contrar'
since an inc%mbent elective o((icial is not eligible to t$e
a&&ointive &osition $is a&&ointment or !esignation t$ereto
cannot be vali! in vie, o( $is !is.%ali(ication or lac+ o(
eligibilit'.
2$is &rovision s$o%l! not be con(%se! ,it$ )ec. 11 #rt. K*
o( t$e Constit%tion ,$ere ";n<o )enator or Member o( t$e
Ho%se o( -e&resentatives ma' $ol! an' ot$er o((ice or
em&lo'ment in t$e Government . . . !%ring $is term ,it$o%t
(or(eiting $is seat . . . ." 2$e !i((erence bet,een t$e t,o
&rovisions is signi(icant in t$e sense t$at inc%mbent national
legislators lose t$eir elective &osts onl' a(ter t$e' $ave
been a&&ointe! to anot$er government o((ice ,$ile ot$er
inc%mbent elective o((icials m%st (irst resign t$eir &osts
be(ore t$e' can be a&&ointe! t$%s r%nning t$e ris+ o( losing
t$e elective &ost as ,ell as not being a&&ointe! to t$e ot$er
&ost. *t is t$ere(ore clear t$at ineligibilit' is not !irectl'
relate! ,it$ (or(eit%re o( o((ice. ". . . . 2$e e((ect is .%ite
!i((erent ,$ere it is e4&ressl' &rovi!e! b' la, t$at a &erson
$ol!ing one o((ice s$all be ineligible to anot$er. )%c$ a
&rovision is $el! to inca&acitate t$e inc%mbent o( an o((ice
180
(rom acce&ting or $ol!ing a secon! o((ice an! to ren!er $is
election or a&&ointment to t$e latter o((ice voi! or voi!able
"6$ere t$e constit%tion or stat%tes !eclare t$at &ersons
$ol!ing one o((ice s$all be ineligible (or election or
a&&ointment to anot$er o((ice eit$er generall' or o( a
certain +in! t$e &ro$ibition $as been $el! to inca&acitate
t$e inc%mbent o( t$e (irst o((ice to $ol! t$e secon! so t$at
an' attem&t to $ol! t$e secon! is voi!
#s inc%mbent elective o((icial res&on!ent Gor!on is
ineligible (or a&&ointment to t$e &osition o( C$airman o( t$e
Boar! an! C$ie( 34ec%tive o( )BM#A $ence $is a&&ointment
t$ereto &%rs%ant to a legislative act t$at contravenes t$e
Constit%tion cannot be s%staine!. He $o,ever remains
Ma'or o( Olonga&o Cit' an! $is acts as )BM# o((icial are
not necessaril' n%ll an! voi!A $e ma' be consi!ere! a !e
(acto o((icer "one ,$ose acts t$o%g$ not t$ose o( a la,(%l
o((icer t$e la, %&on &rinci&les o( &olic' an! 9%stice ,ill
$ol! vali! so (ar as t$e' involve t$e interest o( t$e &%blic
an! t$ir! &ersons ,$ere t$e !%ties o( t$e o((ice ,ere
e4ercise! . . . . %n!er color o( a +no,n election or
a&&ointment voi! beca%se t$e o((icer ,as not eligible or
beca%se t$ere ,as a ,ant o( &o,er in t$e electing or
a&&ointing bo!' or b' reason o( some !e(ect or irreg%larit'
in its e4ercise s%c$ ineligibilit' ,ant o( &o,er or !e(ect
being %n+no,n to t$e &%blic . . . . UorV %n!er color o( an
election or a&&ointment b' or &%rs%ant to a &%blic
%nconstit%tional la, be(ore t$e same is a!9%!ge! to be
s%c$.
Garvia v. (ales /supra- see p. 00B1
Galio v. COM%L%C
Facts: Gali!o an! Galeon ,ere can!i!ates !%ring t$e 18 7an%ar'
1888 local elections (or t$e &osition o( ma'or in t$e M%nici&alit' o(
GarciaDHernan!eB =rovince o( Bo$ol. Gali!o ,as &roclaime! !%l'D
electe! Ma'or b' t$e M%nici&al Boar! o( Canvassers. Galeon t$en
(ile! an election &rotest be(ore t$e -2C o( Bo$ol. #(ter $earing t$e
sai! co%rt %&$el! t$e &roclamation o( Gali!o as t$e !%l'Delecte!
Ma'or o( GarciaDHernan!eB b' a ma9orit' o( 11 votes. On a&&eal to
t$e COM3L3C -2C !ecision ,as reverse! an! Galeon ,as !eclare!
!%l'Delecte! ma'or b' a &l%ralit' o( C votes. M- !enie!. 2$e
COM3L3C $el! t$at t$e (i(teen ;1C< ballots in t$e same &recinct
containing t$e initial "C" a(ter t$e name "Gali!o" ,ere mar+e!
ballots an! t$ere(ore invali!. 2$e COM3L3C sai! t$at ,$ere a
,or! or a letter rec%rs in a &attern or s'stem to mar+ an! i!enti('
ballots t$e ballots containing t$e same s$o%l! be re9ecte! as
mar+e! ballots. Gali!o (ile! a &etition (or certiorari an! in9%nction.
)C !ismisse! (or (ail%re o( &etitioner to com&l' ,it$ &ar. 0 o( t$e
Co%rtHs Circ%lar No. 1D88 ,$ic$ re.%ires t$at a &etition s$all contain
a veri(ie! statement o( t$e !ate ,$en notice o( t$e .%estione!
9%!gment or!er or resol%tion ,as receive! an! t$e !ate o( recei&t
o( t$e !enial o( t$e motion (or reconsi!eration i( an' ,as (ile!. M-
!enie!. Gali!o (ile! &etition (or certiorari an! in9%nction ,it$ &ra'er
(or a restraining or!er ,$ic$ contains t$e same allegations an!
legal iss%es. 2-O iss%e! res&on!ents re.%ire! to (ile comment.
*ss%es: 1. 6ON (inal !ecisions o( t$e COM3L3C are a&&ealable.
2$e COM3L3C $as e4cl%sive original 9%ris!iction over all
contests relating to t$e elections ret%rns an! .%ali(ications
o( all elective regional &rovincial an! cit' o((icials an! $as
a&&ellate 9%ris!iction over all contests involving elective
m%nici&al o((icials !eci!e! b' trial co%rts o( general
9%ris!iction or involving elective baranga' o((icials !eci!e!
b' trial co%rts o( limite! 9%ris!iction. ;#rticle *J ;C< )ection /
;/< &aragra&$ 1 o( t$e 1887 Constit%tion<.
2$e (act t$at !ecisions (inal or!ers or r%lings o( t$e
Commission on 3lections in contests involving elective
m%nici&al an! baranga' o((ices are (inal e4ec%tor' an! not
a&&ealable !oes not &recl%!e a reco%rse to t$is Co%rt b'
,a' o( a s&ecial civil action o( certiorari.
M-. -3G#L#DO: *t is %n!erstoo! $o,ever t$at ,$ile t$ese
!ecisions ,it$ res&ect to baranga' an! m%nici&al o((icials
are (inal an! imme!iatel' e4ec%tor' an! t$ere(ore not
a&&ealable t$at !oes not r%le o%t t$e &ossibilit' o( an
18C
original s&ecial civil action (or certiorari &ro$ibition or
man!am%s as t$e case ma' be %n!er -%le GC o( t$e -%les
o( Co%rt.
/. 6ON t$e COM3L3C committe! a grave ab%se o( !iscretion.
6e !o not $o,ever believe t$at t$e res&on!ent COM3L3C
committe! grave ab%se o( !iscretion amo%nting to lac+ or
e4cess o( 9%ris!iction in ren!ering t$e .%estione! !ecision. *t
is settle! t$at t$e (%nction o( a ,rit o( certiorari is to +ee&
an in(erior co%rt or trib%nal ,it$in t$e bo%n!s o( its
9%ris!iction or to &revent it (rom committing a grave ab%se
o( !iscretion amo%nting to lac+ or e4cess o( 9%ris!iction.
#s correctl' arg%e! b' &%blic res&on!ent COM3L3C it $as
t$e in$erent &o,er to !eci!e an election contest on &$'sical
evi!ence e.%it' la, an! 9%stice an! a&&l' establis$e!
9%ris&r%!ence in s%&&ort o( its (in!ings an! concl%sionsA an!
t$at t$e e4tent to ,$ic$ s%c$ &rece!ents a&&l' rests on its
!iscretion t$e e4ercise o( ,$ic$ s$o%l! not be controlle!
%nless s%c$ !iscretion $as been ab%se! to t$e &re9%!ice o(
eit$er &art'.
QQ2$e recor!s !isclose t$at &rivate res&on!ent $a! alrea!'
ass%me! t$e &osition o( Ma'or o( GarciaDHernan!eB as t$e !%l'D
electe! ma'or o( t$e m%nici&alit' b' virt%e o( t$e COM3L3C
!ecision. 2$e main &%r&ose o( &ro$ibition is to s%s&en! all action
an! &revent t$e (%rt$er &er(ormance o( t$e act com&laine! o(. *n
t$is lig$t t$e &etition at bar $as become moot an! aca!emic.
Rivera v. COM%L%C
Facts: -ivera an! Garcia ** ,ere can!i!ates (or t$e &osition o(
Ma'or o( G%inobatan #lba' !%ring t$e local elections in 7an%ar'
1888. 2$e M%nici&al Boar! o( Canvassers &roclaime! -ivera as t$e
!%l' electe! Ma'or b' a ma9orit' o( 15 votes. Garcia (ile! an
election &rotest ,it$ t$e -2C. #(ter !%e $earing an! %&on
consi!ering t$e re&ort o( a -evision Committee it $a! earlier
create! t$e trial co%rt (o%n! Garcia to $ave obtaine! G17G votes
as against -iveraHs G///. -ivera a&&eale! to t$e COM3L3C. 2$e
COM3L3C s%staine! ,it$ mo!i(ication ;(o%n! Garcia lea!ing b' 1C1
instea! o( 1C0<. M- !enie! rea((irme! ,it$ mo!i(ication ;1/1
votes<. Garcia commence! to !isc$arge t$e !%ties an! (%nctions o(
Ma'or o( G%inobatan on 15 October 1885 b' virt%e o( a ,rit o(
e4ec%tion im&lementing t$e COM3L3C !ecision o( G )e&tember
1885. He contin%e! as ma'or %ntil 15 November 1885 ,$en $e ,as
serve! notice o( t$is Co%rtHs tem&orar' restraining or!er iss%e!
%&on -iveraHs motion. -ivera (ile! t$e &resent &etition on C October
1885 see+ing ann%lment o( t$e COM3L3C en banc !ecision
ren!ere! in (avor o( res&on!ent Garcia. He also &ra'e! (or t$e
iss%ance o( an or!er restraining t$e im&lementation o( t$e sai!
9%!gment arg%ing t$at t$e same $a! not 'et become (inal an!
e4ec%tor' as o( t$e time t$is &etition ,as (ile!. He cites #rticle *JDC
)ection / =ar. ;/< o( t$e 1887 Constit%tion in relation to =art K**
-%le 18 )ection 1 o( t$e COM3L3C -%les o( =roce!%re. He also
conten!s t$at since t$e COM3L3C !ecision o( G )e&tember 1885
$as not 'et become (inal an! e4ec%tor' t$e COM3L3C $as no
a%t$orit' to iss%e t$e assaile! or!er an! ,rit o( e4ec%tion.
=etitioner maintains (%rt$er t$at $e $as a &erio! o( t$irt' ;15< !a's
(rom G )e&tember 1885 or %ntil G October 1885 ,it$in ,$ic$ to
elevate t$e COM3L3C !ecision on certiorari to t$is Co%rt &%rs%ant
to )ection 1 -%le 18 o( t$e COM3L3C -%les o( =roce!%re. He
s%bmits t$at t$e .%estione! COM3L3C !ecision is not one t$at
became (inal an! e4ec%tor' %nless restraine! b' t$is Co%rt as
&rovi!e! %n!er )ection 1 -%le 18 o( t$e COM3L3C -%les as sai!
r%le a&&lies onl' to "!ecisions in &reD&roclamation cases an!
&etitions to !en' !%e co%rse or to !is.%ali(' a can!i!ate an!
&ost&one or s%s&en! elections."
Lastl' accor!ing to &etitioner )ection 11;a< o( -%le 18 ;(inalit' o(
Comelec !ecisions or resol%tions< an! )ection 1 o( -%le 18 ;revie,
b' t$e )%&reme Co%rt o( Comelec !ecisions or!ers an! r%lings< o(
t$e COM3L3C -%les o( =roce!%re s$o%l! be rea! in t$e conte4t o(
)ection 7 #rticle *JD# o( t$e Constit%tion ;)%&reme Co%rt a%t$orit'
to revie, on certiorari a Comelec !ecision or!er or r%ling<.
@&on t$e ot$er $an! res&on!ent Garcia conten!s t$at:
1. 2$e Constit%tion !eclares t$e !ecisions o( t$e COM3L3C on
election contests involving elective m%nici&al an! baranga'
o((icials to be (inal e4ec%tor' an! not a&&ealable ;#rticle *JDC )ec.
/ &ar. ;/< secon! sentence 1887 Constit%tion<.
/. *n an earlier &etition (or certiorari (ile! b' -ivera ,it$ t$is Co%rt
!oc+ete! as G.-. No. 8750G c$arging t$e -egional 2rial Co%rt o(
grave ab%se o( !iscretion in Case No. 51D88 ,$erein t$e same
iss%e no, raise! in t$is &etition ,as raise! b' -ivera t$is Co%rt
!ismisse! t$e &etition (or lac+ o( merit on 7 Marc$ 1888.
18G
1. 2$e s%&&lemental gro%n! raise! b' &etitioner -ivera t$at t$e
COM3L3C committe! grave ab%se o( !iscretion "b' not e4cl%!ing
(rom t$e total votes o( Garcia at least ten ;15< votes ,$ic$ ,ere
misa&&reciate! in GarciaHs (avor o%tsi!e o( t$ose ob9ecte! votes
alrea!' r%le! %&on b' t$e COM3L3C" !oes not !eserve an'
consi!eration. *( tr%e it is an error in 9%!gment correctible b'
a&&eal not b' a &etition (or certiorari &%rs%ant to -%le GC )ection
1 o( t$e -%les o( Co%rt.
*ss%es: 1. 6ON t$e !ecisions o( t$e COM3L3C in election contests
involving elective m%nici&al an! baranga' o((icials being (inal an!
e4ec%tor' an! not a&&ealable &recl%!e t$e (iling o( a s&ecial civil
action o( certiorari.
Gali!o Case.
Flores v. COM3L3C: Obvio%sl' t$e &rovision o( #rticle *JDC
)ection /;/< o( t$e Constit%tion t$at "!ecisions (inal or!ers
or r%lings o( t$e Commission on election contests involving
elective m%nici&al an! baranga' o((ices s$all be (inal
e4ec%tor' an! not a&&ealable" a&&lies onl' to .%estions o(
(act an! not o( la,. 2$at &rovision ,as not inten!e! to
!ivest t$e )%&reme Co%rt o( its a%t$orit' to resolve
.%estions o( la, as in$erent in t$e 9%!icial &o,er con(erre!
%&on it b' t$e Constit%tion. 6e esc$e, a literal rea!ing o(
t$at &rovision t$at ,o%l! contra!ict s%c$ a%t$orit'.
/. 6ON t$e COM3L3C committe! a grave ab%se o( !iscretion.
2$e main t$r%st o( t$e &resent &etition (or certiorari is t$at
t$e res&on!ent COM3L3C en banc committe! grave ab%se
o( !iscretion ,$en it a((irme! t$e !ecision o( its First
Division &rom%lgate! on / Ma' 1885 ann%lling t$e
&roclamation o( t$e &etitioner as t$e !%l' electe! Ma'or o(
G%inobatan #lba' an! ,$en it !i! not e4cl%!e (rom t$e
total votes o( Garcia at least ten ;15< votes ,$ic$ ,ere
allege!l' misa&&reciate! in GarciaHs (avor.
6e $ave closel' scr%tiniBe! t$e c$allenge! COM3L3C
!ecision an! (in! t$at t$e sai! !ecision ,as not arrive! at
ca&ricio%sl' or ,$imsicall' b' res&on!ent COM3L3C. #
&ainsta+ing reDeval%ation o( t$e .%estione! G7 ballots ,as
ma!e b' t$e COM3L3C en banc. *n (act 10 ballots originall'
a!9%!icate! in GarciaHs (avor ,ere overr%le! b' t$e
Commission en banc t$%s re!%cing t$e n%mber o( votes in
$is (avor to 880 votes o%t o( t$e /00C conteste! ballots. On
t$e ot$er $an! 1G ballots ,ere a!!e! in -iveraHs (avor t$%s
increasing t$e votes in $is (avor to 1587 votes.
Moreover t$e a&&reciation an! reDeval%ation o( ballots are
(act%al !eterminations. *t is settle! t$at in a &etition (or
certiorari (in!ings o( (act o( a!ministrative bo!ies are (inal
%nless grave ab%se o( !iscretion $as marre! s%c$ (act%al
!eterminations. 6e (in! none in t$is case.
Bor3a v. COM%L%C
Facts: Ca&co ,as electe! viceDma'or o( =ateros on 7an%ar' 18
1888 (or a term en!ing 7%ne 15 188/. On )e&tember / 1888 $e
became ma'or b' o&eration o( la, %&on t$e !eat$ o( t$e
inc%mbent Bor9a. On Ma' 11 188/ $e ran an! ,as electe! ma'or
(or a term o( t$ree 'ears ,$ic$ en!e! on 7%ne 15 188C. On Ma' 8
188C $e ,as reelecte! ma'or (or anot$er term o( t$ree 'ears
en!ing 7%ne 15 1888. On Marc$ /7 1888 Ca&co (ile! a certi(icate
o( can!i!ac' (or ma'or o( =ateros relative to t$e Ma' 11 1888
elections. Bor9a 7r. ,$o ,as also a can!i!ate (or ma'or so%g$t
Ca&co>s !is.%ali(ication on t$e t$eor' t$at t$e latter ,o%l! $ave
alrea!' serve! as ma'or (or t$ree consec%tive terms b' 7%ne 15
1888 an! ,o%l! t$ere(ore be ineligible to serve (or anot$er term
a(ter t$at.
On #&ril 15 1888 t$e )econ! Division o( t$e COM3L3C r%le! in
(avor o( Bor9a an! !eclare! Ca&co !is.%ali(ie! (rom r%nning (or
reelection as ma'or o( =ateros. Ho,ever on motion o( &rivate
res&on!ent t$e COM3L3C en banc voting CD/ reverse! t$e
!ecision an! !eclare! Ca&co eligible to r%n (or ma'or in t$e Ma'
11 1888 elections. 2$e ma9orit' state! in its !ecision: *n bot$ t$e
Constit%tion an! t$e LGC t$e t$reeDterm limitation re(ers to t$e
term o( o((ice (or ,$ic$ t$e local o((icial ,as electe!. *t ma!e no
re(erence to s%ccession to an o((ice to ,$ic$ $e ,as not electe!.
)%ccession into o((ice is not co%nte! as 1 term (or &%r&oses o( t$e
com&%tation o( t$e t$reeDterm limitation %n!er t$e Constit%tion an!
t$e LGC. Ca&co ,on an! ,as &roclaime! electe! b' t$e M%nici&al
Boar! o( Canvassers. 2$is is a &etition (or certiorari bro%g$t to set
asi!e t$e resol%tion !ate! Ma' 7 1888 o( t$e COM3L3C an! to
see! a !eclaration t$at Ca&co is !is.%ali(ie! to serve anot$er term
as Ma'or o( =ateros Metro Manila.
*ss%e: 6ON a viceDma'or ,$o s%ccee!s to t$e o((ice o( ma'or b'
o&eration o( la, an! serves t$e remain!er o( t$e term is
consi!ere! to $ave serve! a term in t$at o((ice (or t$e &%r&ose o(
t$e t$reeDterm limit.
187
#rticle J c8 o( t$e Constit%tion &rovi!es: 2$e term o( o((ice
o( elective local o((icials e4ce&t baranga' o((icials ,$ic$
s$all be !etermine! b' la, s$all be t$ree 'ears an! no s%c$
o((icial s$all serve (or more t$an t$ree consec%tive terms.
Kol%ntar' ren%nciation o( t$e o((ice (or an' lengt$ o( time
s$all not be consi!ere! as an interr%&tion in t$e contin%it'
o( $is service (or t$e (%ll term (or ,$ic$ $e ,as electe!.
2$is &rovision is restate! in c01;b< o( t$e LGC ;-.#. No.
71G5<: No local elective o((icial s$all serve (or more t$an
t$ree ;1< consec%tive terms in t$e same &osition. Kol%ntar'
ren%nciation o( t$e o((ice (or an' lengt$ o( time s$all not be
consi!ere! as an interr%&tion in t$e contin%it' o( service (or
t$e (%ll term (or ,$ic$ t$e elective o((icial concerne! ,as
electe!.
2,o i!eas t$%s emerge (rom a consi!eration o( t$e
&rocee!ings o( t$e Constit%tional Commission. 2$e (irst is
t$e notion o( service o( term !erive! (rom t$e concern
abo%t t$e acc%m%lation o( &o,er as a res%lt o( a &rolonge!
sta' in o((ice. 2$e secon! is t$e i!ea o( election !erive!
(rom t$e concern t$at t$e rig$t o( t$e &eo&le to c$oose
t$ose ,$om t$e' ,is$ to govern t$em be &reserve!.
*n !isc%ssing term limits t$e !ra(ters o( t$e Constit%tion !i!
so on t$e ass%m&tion t$at t$e o((icials concerne! ,ere
serving b' reason o( reelection. *n!ee! a (%n!amental tenet
o( re&resentative !emocrac' is t$at t$e &eo&le s$o%l! be
allo,e! to c$oose ,$om t$e' &lease to govern t$em. 2o bar
t$e election o( a local o((icial beca%se $e $as alrea!' serve!
t$ree terms alt$o%g$ t$e (irst as a res%lt o( s%ccession b'
o&eration o( la, rat$er t$an election ,o%l! t$ere(ore be to
violate t$is &rinci&le.
)econ! not onl' $istorical e4amination b%t te4t%al anal'sis
as ,ell s%&&orts t$e r%ling o( t$e COM3L3C t$at #rt. J c8
contem&lates service b' local o((icials (or t$ree consec%tive
terms as a res%lt o( election. 2$e (irst sentence s&ea+s o(
Et$e term o( o((ice o( elective local o((icialsF an! bars Es%c$
o((icialUsVF (rom serving (or more t$an t$ree consec%tive
terms. 2$e secon! sentence in e4&laining ,$en an elective
local o((icial ma' be !eeme! to $ave serve! $is (%ll term o(
o((ice states t$at Evol%ntar' ren%nciation o( t$e o((ice (or
an' lengt$ o( time s$all not be consi!ere! as an interr%&tion
in t$e contin%it' o( $is service (or t$e (%ll term (or ,$ic$ $e
,as electe!.F 2$e term serve! m%st t$ere(ore be one E(or
,$ic$ Ut$e o((icial concerne!V ,as electe!.F 2$e &%r&ose o(
t$is &rovision is to &revent a circ%mvention o( t$e limitation
on t$e n%mber o( terms an elective o((icial ma' serve.
Conversel' i( $e is not serving a term (or ,$ic$ $e ,as
electe! beca%se $e is sim&l' contin%ing t$e service o( t$e
o((icial $e s%ccee!s s%c$ o((icial cannot be consi!ere! to
$ave (%ll' serve! t$e term no, ,it$stan!ing $is vol%ntar'
ren%nciation o( o((ice &rior to its e4&iration.
2$ere is a !i((erence bet,een t$e case o( a viceDma'or an!
t$at o( a member o( t$e Ho%se o( -e&resentatives ,$o
s%ccee!s anot$er ,$o !ies resigns becomes inca&acitate!
or is remove! (rom o((ice. 2$e viceDma'or s%ccee!s to t$e
ma'ors$i& b' o&eration o( la,. On t$e ot$er $an! t$e
-e&resentative is electe! to (ill t$e vacanc'. *n a real sense
t$ere(ore s%c$ -e&resentative serves a term (or ,$ic$ $e
,as electe!. #s t$e &%r&ose o( t$e constit%tional &rovision
is to limit t$e rig$t ot be electe! an! to serve in Congress
$is service o( t$e %ne4&ire! term is rig$tl' co%nte! as $is
(irst term. -at$er t$an re(%te ,$at ,e believe to be t$e
inten!ment o( #rt. J c8 ,it$ regar! to elective local
o((icials t$e case o( a -e&resentative ,$o s%ccee!s anot$er
con(irms t$e t$eor'.
=etitioner also cites #rt. K** c0 o( t$e Constit%tion ,$ic$
&rovi!es (or s%ccession o( t$e KiceD=resi!ent to t$e
=resi!enc' in case o( vacanc' in t$at o((ice. #(ter stating
t$at E2$e =resi!ent s$all not be eligible (or an' reelectionF
t$is &rovision sa's t$at ENo &erson ,$o $as s%ccee!e! as
=resi!ent an! $as serve! as s%c$ (or more t$an (o%r 'ears
s$all be .%ali(ie! (or election to t$e same o((ice at an'
time.F =etitioner conten!s t$at b' analog' t$e viceDma'or
s$o%l! li+e,ise be consi!ere! to $ave serve! a (%ll term as
ma'or i( $e s%ccee!s to t$e latter>s o((ice an! serves (or t$e
remain!er o( t$e term.
2$e (ramers o( t$e Constit%tion incl%!e! s%c$ a &rovision
beca%se ,it$o%t it t$e KiceD=resi!ent ,$o sim&l' ste&s
into t$e =resi!enc' b' s%ccession ,o%l! be .%ali(ie! to r%n
(or =resi!ent even i( $e $as occ%&ie! t$at o((ice (or more
t$an (o%r 'ears. 2$e absence o( a similar &rovision in #rt. J
c8 on elective local o((icials t$ro,s in bol! relie( t$e
!i((erence bet,een t$e t,o cases. *t %n!erscores t$e
constit%tional intent to cover onl' t$e terms o( o((ice to
,$ic$ one ma' $ave been electe! (or &%r&ose o( t$e t$reeD
188
term limit on local elective o((icials !isregar!ing (or t$is
&%r&ose service b' a%tomatic s%ccession.
2$ere is anot$er reason ,$' t$e KiceD=resi!ent ,$o
s%ccee!s to t$e =resi!enc' an! serves in t$at o((ice (or
more t$an (o%r 'ears is ineligible (or election as =resi!ent.
2$e KiceD=resi!ent is electe! &rimaril' to s%ccee! t$e
=resi!ent in t$e event o( t$e latter>s !eat$ &ermanent
!isabilit' removal or resignation. 6$ile $e ma' be
a&&ointe! to t$e cabinet $is becoming so is entirel'
!e&en!ent on t$e goo! graces o( t$e =resi!ent. *n r%nning
(or KiceD=resi!ent $e ma' t$%s be sai! to also see+ t$e
=resi!enc'. For t$eir &art t$e electors li+e,ise c$oose as
KiceD=resi!ent t$e can!i!ate ,$o t$e' t$in+ can (ill t$e
=resi!enc' in t$e event it becomes vacant. Hence service
in t$e &resi!enc' (or more t$an (o%r 'ears ma' rig$tl' be
consi!ere! as service (or a (%ll term.
2$is is not so in t$e case o( t$e viceDma'or. @n!er t$e LGC
$e is t$e &resi!ing o((icer o( t$e sangg%nian an! $e a&&oints
all o((icials an! em&lo'ees o( s%c$ local assembl'. He $as
!istinct &o,ers an! (%nctions s%ccession to ma'ors$i& in
t$e event o( vacanc' t$erein being onl' one o( t$em. *t
cannot be sai! o( $im as m%c$ as o( t$e KiceD=resi!ent in
t$e event o( a vacanc' in t$e =resi!enc' t$at in r%nning (or
viceDma'or $e also see+s t$e ma'ors$i&. His ass%m&tion o(
t$e ma'ors$i& in t$e event o( vacanc' is more a matter o(
c$ance t$an o( !esign. Hence $is service in t$at o((ice
s$o%l! not be co%nte! in t$e a&&lication o( an' term limit.
2o reca&it%late t$e term limit (or elective local o((icials
m%st be ta+en to re(er to t$e rig$t to be electe! as ,ell as
t$e rig$t to serve in t$e same elective &osition.
Conse.%entl' it is not eno%g$ t$at an in!ivi!%al $as serve!
t$ree consec%tive terms in an elective local o((ice $e m%st
also $ave been electe! to t$e same &osition (or t$e same
n%mber o( times be(ore t$e !is.%ali(ication can a&&l'.
QQCase No. 1. )%&&ose # is a viceDma'or ,$o becomes ma'or b'
reason o( t$e !eat$ o( t$e inc%mbent. )i4 mont$s be(ore t$e ne4t
election $e resigns an! is t,ice electe! t$erea(ter. Can $e r%n
again (or ma'or in t$e ne4t election.
:es beca%se alt$o%g$ $e $as alrea!' (irst serve! as ma'or b'
s%ccession an! s%bse.%entl' resigne! (rom o((ice be(ore t$e (%ll
term e4&ire! $e $as not act%all' serve! t$ree (%ll terms in all (or
t$e &%r&ose o( a&&l'ing t$e term limit. @n!er #rt. J c8 vol%ntar'
ren%nciation o( t$e o((ice is not consi!ere! as an interr%&tion in t$e
contin%it' o( $is service (or t$e (%ll term onl' i( t$e term is one E(or
,$ic$ $e ,as electe!.F )ince # is onl' com&leting t$e service o(
t$e term (or ,$ic$ t$e !ecease! an! not $e ,as electe!. # cannot
be consi!ere! to $ave com&lete! one term. His resignation
constit%tes an interr%&tion o( t$e (%ll term.
QQCase No. /. )%&&ose B is electe! Ma'or an! !%ring $is (irst
term $e is t,ice s%s&en!e! (or miscon!%ct (or a total o( 1 'ear. *(
$e is t,ice reelecte! a(ter t$at can $e r%n (or one more term in t$e
ne4t electionT :es beca%se $e $as serve! onl' t,o (%ll terms
s%ccessivel'. *n bot$ cases t$e ma'or is entitle! to r%n (or
reelection beca%se t$e t,o con!itions (or t$e a&&lication o( t$e
!is.%ali(ication &rovisions $ave not conc%rre! namel' t$at t$e
local o((icial concerne! $as been electe! t$ree consec%tive times
an! t$at $e $as (%ll' serve! t$ree consec%tive terms. *n t$e (irst
case even i( t$e local o((icial is consi!ere! to $ave serve! t$ree (%ll
terms not,it$stan!ing $is resignation be(ore t$e en! o( t$e (irst
term t$e (act remains t$at $e $as not been electe! t$ree times. *n
t$e secon! case t$e local o((icial $as been electe! t$ree
consec%tive times b%t $e $as not (%ll' serve! t$ree consec%tive
terms.
QQCase No. 1. 2$e case o( viceDma'or C ,$o becomes ma'or b'
s%ccession involves a total (ail%re o( t$e t,o con!itions to conc%r
(or t$e &%r&ose o( a&&l'ing #rt. J c8. )%&&ose $e is t,ice electe!
a(ter t$at term is $e .%ali(ie! to r%n again in t$e ne4t electionT
:es beca%se $e ,as not electe! to t$e o((ice o( t$e ma'or in t$e
(irst term b%t sim&l' (o%n! $imsel( t$r%st into it b' o&eration o( la,.
Neit$er $a! $e serve! t$e (%ll term beca%se $e onl' contin%e! t$e
service interr%&te! b' t$e !eat$ o( t$e !ecease! ma'or. 2o
consi!er C in t$e t$ir! case to $ave serve! t$e (irst term in (%ll an!
t$ere(ore ineligible to r%n a t$ir! time (or reelection ,o%l! be not
onl' to (alsi(' realit' b%t also to %n!%l' restrict t$e rig$t o( t$e
&eo&le to c$oose ,$om t$e' ,is$ to govern t$em. *( t$e viceD
ma'or t%rns o%t to be a ba! ma'or t$e &eo&le can reme!' t$e
sit%ation b' sim&l' not reelecting $im (or anot$er term. B%t i( on
t$e ot$er $an! $e &roves to be a goo! ma'or t$ere ,ill be no ,a'
t$e &eo&le can ret%rn $im to o((ice ;even i( it is 9%st t$e t$ir! time
$e is stan!ing (or reelection< i( $is service o( t$e (irst term is
co%nte! as one o( t$e &%r&ose o( a&&l'ing t$e term limit. 2o
consi!er C as eligible (or reelection ,o%l! be in accor! ,it$ t$e
%n!erstan!ing o( t$e Constit%tional Commission t$at ,$ile t$e
188
&eo&le s$o%l! be &rotecte! (rom t$e evils t$at a mono&ol' o(
&olitical &o,er ma' bring abo%t care s$o%l! be ta+en t$at t$eir
(ree!om o( c$oice is not %n!%l' c%rtaile!.
Lonzania v. COM%L%C
Facts: LonBani!a ,as !%l' electe! an! serve! t,o consec%tive
terms as m%nici&al ma'or o( )an #ntonio Zambales &rior to t$e
Ma' 8 188C elections. *n t$e Ma' 188C elections LonBani!a ran (or
ma'or o( )an #ntonio Zambales an! ,as again &roclaime! ,inner.
He ass%me! o((ice an! !isc$arge! t$e !%ties t$ereo(. His
&roclamation in 188C ,as $o,ever conteste! b' $is t$en o&&onent
7%an #lveB ,$o (ile! an election &rotest be(ore t$e -egional 2rial
Co%rt o( Zambales ,$ic$ in a !ecision !ate! 7an%ar' 8 1887
!eclare! a (ail%re o( elections. #ccor!ingl' t$e o((ice o( t$e ma'or
o( t$e M%nici&alit' o( )an #ntonio Zambales is $ereb' !eclare!
vacant. On a&&eal t$e COM3L3C !eclare! #lveB t$e !%l' electe!
ma'or o( )an #ntonio Zambales b' &l%ralit' o( votes cast in $is
(avor totaling 17/5 votes as against 1088 votes (or LonBani!a. On
Febr%ar' /7 1888 t$e COM3L3C iss%e! a ,rit o( e4ec%tion or!ering
LonBani!a to vacate t$e &ost ,$ic$ $e obe'e! an! #lveB ass%me!
o((ice (or t$e remain!er o( t$e term. *n t$e Ma' 11 1888 elections
LonBani!a again (ile! $is certi(icate o( can!i!ac' (or ma'or o( )an
#ntonio. On #&ril /1 1888 $is o&&onent 3%(emio M%li timel' (ile! a
&etition to !is.%ali(' LonBani!a (rom r%nning (or ma'or o( )an
#ntonio in t$e 1888 elections on t$e gro%n! t$at $e $a! serve!
t$ree consec%tive terms in t$e same &ost. On Ma' 11 1888
&etitioner LonBani!a ,as &roclaime! ,inner. On Ma' /1 1888 t$e
First Division o( t$e COM3L3C iss%e! t$e .%estione! resol%tion
granting t$e &etition (or !is.%ali(ication %&on a (in!ing t$at
LonBani!a $a! serve! t$ree consec%tive terms as ma'or o( )an
#ntonio Zambales an! $e is t$ere(ore !is.%ali(ie! to r%n (or t$e
same &ost (or t$e (o%rt$ time. 2$e COM3L3C (o%n! t$at
LonBani!aHs ass%m&tion o( o((ice b' virt%e o( $is &roclamation in
Ma' 188C alt$o%g$ $e ,as later %nseate! be(ore t$e e4&iration o(
t$e term s$o%l! be co%nte! as service (or one (%ll term in
com&%ting t$e t$ree term limit %n!er t$e Constit%tion an! t$e LGC.
2$e (in!ing o( t$e COM3L3C First Division ,as a((irme! b' t$e
COM3L3C 3n Banc in a resol%tion !ate! #%g%st 11 1888.
*ss%e: 6ON LonBani!aHs ass%m&tion o( o((ice as ma'or o( )an
#ntonio Zambales (rom Ma' 188C to Marc$ 1888 ma' be
consi!ere! as service o( one (%ll term (or t$e &%r&ose o( a&&l'ing
t$e t$reeDterm limit (or elective local government o((icials.
)ec. 8 #rt. J o( t$e Constit%tion &rovi!es: 2$e term o( o((ice
o( elective local o((icials e4ce&t baranga' o((icials ,$ic$
s$all be !etermine! b' la, s$all be t$ree 'ears an! no s%c$
o((icials s$all serve (or more t$an t$ree consec%tive terms.
Kol%ntar' ren%nciation o( t$e o((ice (or an' lengt$ o( time
s$all not be consi!ere! as an interr%&tion in t$e contin%it'
o( $is service (or t$e (%ll term (or ,$ic$ $e ,as electe!.
)ec. 01 o( t$e LGC ;-.#. No. 71G5< restates t$e same r%le:
No local elective o((icial s$all serve (or more t$an t$ree
consec%tive terms in t$e same &osition. Kol%ntar'
t$e (%ll term (or ,$ic$ t$e elective o((icial concerne! ,as
electe!.
2$e recor!s o( t$e 188G Constit%tional Commission s$o,
t$at t$e t$reeDterm limit ,$ic$ is no, embo!ie! in section
8 #rt. J o( t$e Constit%tion ,as initiall' &ro&ose! to be an
absol%te bar to an' elective local government o((icial (rom
r%nning (or t$e same &osition a(ter serving t$ree
consec%tive terms. 2$e sai! !is.%ali(ication ,as &rimaril'
inten!e! to (orestall t$e acc%m%lation o( massive &olitical
&o,er b' an elective local government o((icial in a given
localit' in or!er to &er&et%ate $is ten%re in o((ice. 2$e
!elegates also consi!ere! t$e nee! to broa!en t$e c$oices
o( t$e electorate o( t$e can!i!ates ,$o ,ill r%n (or o((ice
an! to in(%se ne, bloo! in t$e &olitical arena b'
!is.%ali('ing o((icials (rom r%nning (or t$e same o((ice a(ter
a term o( nine 'ears. 2$e ma'or ,as com&are! b' some
!elegates to t$e =resi!ent o( t$e -e&%blic as $e is a
&o,er(%l c$ie( e4ec%tive o( $is &olitical territor' an! is most
li+el' to (orm a &olitical !'nast'. 2$e !ra(ters $o,ever
recogniBe! an! too+ note o( t$e (act t$at some local
government o((icials r%n (or o((ice be(ore t$e' reac$ (ort'
'ears o( ageA t$%s to &er&et%all' bar t$em (rom r%nning (or
t$e same o((ice a(ter serving nine consec%tive 'ears ma'
!e&rive t$e &eo&le o( .%ali(ie! can!i!ates to c$oose (rom.
#s (inall' vote! %&on it ,as agree! t$at an elective local
government o((icial s$o%l! be barre! (rom r%nning (or t$e
/55
same &ost a(ter t$ree consec%tive terms. #(ter a $iat%s o( at
least one term $e ma' again r%n (or t$e same o((ice.
Bor9a Case: 2$is Co%rt $el! t$at t$e t,o con!itions (or t$e
a&&lication o( t$e !is.%ali(ication m%st conc%r: 1< t$at t$e
o((icial concerne! $as been electe! (or t$ree consec%tive
terms in t$e same local government &ost an! /< t$at $e $as
(%ll' serve! t$ree consec%tive terms. *t state!: 2o
reca&it%late t$e term limit (or elective local o((icials m%st
be ta+en to re(er to t$e rig$t to be electe! as ,ell as t$e
rig$t to serve in t$e same elective &osition. Conse.%entl' it
is not eno%g$ t$at an in!ivi!%al $as serve! t$ree
consec%tive terms in an elective local o((ice $e m%st also
$ave been electe! to t$e same &osition (or t$e same
n%mber o( times be(ore t$e !is.%ali(ication can a&&l'.
*t is not !is&%te! t$at t$e &etitioner ,as &revio%sl' electe!
an! serve! t,o consec%tive terms as ma'or o( )an #ntonio
Zambales &rior to t$e Ma' 188C ma'oral elections. *n t$e
Ma' 188C elections $e again ran (or ma'or o( )an #ntonio
Zambales an! ,as &roclaime! ,inner. He ass%me! o((ice
an! !isc$arge! t$e rig$ts an! !%ties o( ma'or %ntil Marc$
1888 ,$en $e ,as or!ere! to vacate t$e &ost b' reason o(
t$e COM3L3C !ecision !ate! November 11 1887 on t$e
election &rotest against t$e &etitioner ,$ic$ !eclare! $is
o&&onent 7%an #lveB t$e !%l' electe! ma'or o( )an #ntonio.
#lveB serve! t$e remaining &ortion o( t$e 188CD1888
ma'oral term.
2$e t,o re.%isites (or t$e a&&lication o( t$e t$ree term r%le
are absent. D D First t$e &etitioner cannot be consi!ere! as
$aving been !%l' electe! to t$e &ost in t$e Ma' 188C
elections an! secon! t$e &etitioner !i! not (%ll' serve t$e
188CD1888 ma'oral term b' reason o( invol%ntar'
relin.%is$ment o( o((ice. #(ter a reDa&&reciation an! revision
o( t$e conteste! ballots t$e COM3L3C itsel( !eclare! b' (inal
9%!gment t$at &etitioner LonBani!a lost in t$e Ma' 188C
ma'oral elections an! $is &revio%s &roclamation as ,inner
,as !eclare! n%ll an! voi!. His ass%m&tion o( o((ice as
ma'or cannot be !eeme! to $ave been b' reason o( a vali!
election b%t b' reason o( a voi! &roclamation. *t $as been
re&eate!l' $el! b' t$is co%rt t$at a &roclamation
s%bse.%entl' !eclare! voi! is no &roclamation at all C an!
,$ile a &roclaime! can!i!ate ma' ass%me o((ice on t$e
strengt$ o( t$e &roclamation o( t$e Boar! o( Canvassers $e
is onl' a &res%m&tive ,inner ,$o ass%mes o((ice s%b9ect to
t$e (inal o%tcome o( t$e election &rotest. G =etitioner
LonBani!a !i! not serve a term as ma'or o( )an #ntonio
Zambales (rom Ma' 188C to Marc$ 1888 beca%se $e ,as
not !%l' electe! to t$e &ostA $e merel' ass%me! o((ice as
&res%m&tive ,inner ,$ic$ &res%m&tion ,as later
overt%rne! b' t$e COM3L3C ,$en it !eci!e! ,it$ (inalit'
t$at LonBani!a lost in t$e Ma' 188C ma'oral elections.
)econ! t$e &etitioner cannot be !eeme! to $ave serve!
t$e Ma' 188C to 1888 term beca%se $e ,as or!ere! to
vacate $is &ost be(ore t$e e4&iration o( t$e term. 2$e
res&on!entsH contention t$at t$e &etitioner s$o%l! be
!eeme! to $ave serve! one (%ll term (rom Ma' 188CD1888
beca%se $e serve! t$e greater &ortion o( t$at term $as no
legal basis to s%&&ort itA it !isregar!s t$e secon! re.%isite
(or t$e a&&lication o( t$e !is.%ali(ication i.e. t$at $e $as
(%ll' serve! t$ree consec%tive terms. 2$e secon! sentence
o( t$e constit%tional &rovision %n!er scr%tin' states
"Kol%ntar' ren%nciation o( o((ice (or an' lengt$ o( time s$all
not be consi!ere! as an interr%&tion in t$e contin%it' o(
service (or t$e (%ll term (or ,$ic$ $e ,as electe!. "2$e clear
intent o( t$e (ramers o( t$e constit%tion to bar an' attem&t
to circ%mvent t$e t$reeDterm limit b' a vol%ntar'
ren%nciation o( o((ice an! at t$e same time res&ect t$e
&eo&leHs c$oice an! grant t$eir electe! o((icial (%ll service o(
a term is evi!ent in t$is &rovision. Kol%ntar' ren%nciation o(
a term !oes not cancel t$e reno%nce! term in t$e
com&%tation o( t$e t$ree term limitA conversel' invol%ntar'
severance (rom o((ice (or an' lengt$ o( time s$ort o( t$e (%ll
term &rovi!e! b' la, amo%nts to an interr%&tion o(
contin%it' o( service. 2$e &etitioner vacate! $is &ost a (e,
mont$s be(ore t$e ne4t ma'oral elections not b' vol%ntar'
ren%nciation b%t in com&liance ,it$ t$e legal &rocess o( ,rit
o( e4ec%tion iss%e! b' t$e COM3L3C to t$at e((ect. )%c$
invol%ntar' severance (rom o((ice is an interr%&tion o(
contin%it' o( service an! t$%s t$e &etitioner !i! not (%ll'
serve t$e 188CD1888 ma'oral term.
=etitioner ,as not t$e !%l' electe! ma'or an! t$at $e !i!
not $ol! o((ice (or t$e (%ll termA $ence $is ass%m&tion o(
o((ice (rom 188C to Marc$ 1888 cannot be co%nte! as a
term (or &%r&oses o( com&%ting t$e t$ree term limit. 2$e
-esol%tion o( t$e COM3L3C (in!ing $im !is.%ali(ie! on t$is
/51
gro%n! to r%n in t$e Ma' 1888 ma'oral elections s$o%l!
t$ere(ore be set asi!e.
/. 6ON t$e !ela' in resolving t$e election &rotest bet,een
&etitioner an! $is t$en o&&onent #lveB ,$ic$ too+ ro%g$l'
abo%t t$ree 'ears an! res%ltantl' e4ten!e! t$e &etitioners
inc%mbenc' in an o((ice to ,$ic$ $e ,as not la,(%ll'
electe!.
)%c$ !ela' cannot be im&%te! to t$e &etitioner. 2$ere is no
s&eci(ic allegation nor &roo( t$at t$e !ela' ,as !%e to an'
&olitical mane%vering on $is &art to &rolong $is sta' in
o((ice. Moreover &rotestant #lveB ,as not ,it$o%t legal
reco%rse to move (or t$e earl' resol%tion o( t$e election
&rotest ,$ile it ,as &en!ing be(ore t$e regional trial co%rt
or to (ile a motion (or t$e e4ec%tion o( t$e regional trial
co%rtHs !ecision !eclaring t$e &osition o( ma'or vacant an!
or!ering t$e viceDma'or to ass%me o((ice ,$ile t$e a&&eal
,as &en!ing ,it$ t$e COM3L3C. )%c$ !ela' ,$ic$ is not
$ere s$o,n to $ave intentionall' so%g$t b' t$e &etitioner to
&rolong $is sta' in o((ice cannot serve as basis to bar $is
rig$t to be electe! an! to serve $is c$osen local government
&ost in t$e s%ccee!ing ma'oral election.
/. 6ON t$e COM3L3C cease! to $ave 9%ris!iction over t$e
&etition (or !is.%ali(ication a(ter $e ,as &roclaime! ,inner.
2$e instant &etition (or !is.%ali(ication ,as (ile! on #&ril /1
1888 or be(ore t$e Ma' 1888 elections an! ,as resolve! on
Ma' /1 1888 or a(ter t$e &etitionerHs &roclamation. *t ,as
$el! in t$e case o( )%nga vs. COM3L3C an! 2rini!a! t$at t$e
&roclamation nor t$e ass%m&tion o( o((ice o( a can!i!ate
against ,$om a &etition (or !is.%ali(ication is &en!ing
be(ore t$e COM3L3C !oes not !ivest t$e COM3L3C o(
9%ris!iction to contin%e $earing t$e case an! to resolve it on
t$e merits.
)ec. G o( -# GG0G s&eci(icall' man!ates t$at: an' can!i!ate
,$o $as been !eclare! b' (inal 9%!gment to be !is.%ali(ie!
s$all not be vote! (or an! t$e votes cast (or $im s$all not
be co%nte!. *( (or an' reason a can!i!ate is not !eclare! b'
(inal 9%!gment be(ore an election to be !is.%ali(ie! an! $e is
vote! (or an! receives t$e ,inning n%mber o( votes in s%c$
election t$e co%rt or commission s$all contin%e ,it$ t$e
trial an! $earing o( t$e action in.%ir' or &rotest an! %&on
motion o( t$e com&lainant or an' intervenor ma' !%ring t$e
&en!enc' t$ereo( or!er t$e s%s&ension o( t$e &roclamation
o( s%c$ can!i!ate ,$enever t$e evi!ence o( $is g%ilt is
strong.
2$is co%rt $el! t$at t$e clear legislative intent is t$at t$e
COM3L3C s$o%l! contin%e t$e trial an! $earing o( t$e
!is.%ali(ication case to its concl%sion i.e. %ntil 9%!gment is
ren!ere!. 2$e o%trig$t !ismissal o( t$e &etition (or
!is.%ali(ication (ile! be(ore t$e election b%t ,$ic$ remaine!
%nresolve! a(ter t$e &roclamation o( t$e can!i!ate so%g$t
to be !is.%ali(ie! ,ill %n!%l' re,ar! t$e sai! can!i!ate an!
ma' enco%rage $im to em&lo' !ela'ing tactics to im&e!e
t$e resol%tion o( t$e &etition %ntil a(ter $e $as been
&roclaime!. 2$e (act t$at 2rini!a! ,as alrea!' &roclaime!
an! $a! ass%me! t$e &osition o( ma'or !i! not !ivest t$e
COM3L3C o( a%t$orit' an! 9%ris!iction to contin%e t$e
$earing an! event%all' !eci!e t$e !is.%ali(ication case.
#g%am v. COM3L3C: 2ime an! again t$is Co%rt $as given its
im&rimat%r on t$e &rinci&le t$at COM3L3C is ,it$ a%t$orit'
to ann%l an' canvass an! &roclamation ,$ic$ ,as illegall'
ma!e. 2$e (act t$at a can!i!ate &roclaime! $as ass%me!
o((ice ,e $ave sai! is no bar to t$e e4ercise o( s%c$ &o,er.
*t o( co%rse ma' not be availe! o( ,$ere t$ere $as been a
vali! &roclamation. )ince &rivate res&on!entHs &etition
be(ore t$e COM3L3C is &recisel' !irecte! at t$e ann%lment
o( t$e canvass an! &roclamation ,e &erceive t$at in.%ir'
into t$is iss%e is ,it$in t$e area allocate! b' t$e
Constit%tion an! la, to COM3L3C . . . -eall' ,ere a victim
o( a &roclamation to be &recl%!e! (rom c$allenging t$e
vali!it' t$ereo( a(ter t$at &roclamation an! t$e ass%m&tion
o( o((ice t$ere%n!er bane(%l e((ects ma' easil' s%&ervene.
=%r&ose o( a !is.%ali(ication &rocee!ing : to &revent t$e
can!i!ate (rom r%nning or i( electe! (rom serving or to
&rosec%te $im (or violation o( t$e election la,s. Obvio%sl'
t$e (act t$at a can!i!ate $as been &roclaime! electe! !oes
not signi(' t$at $is !is.%ali(ication is !eeme! con!one! an!
ma' no longer be t$e s%b9ect o( a se&arate investigation .
Aormeo v. COM%L%C
Facts: #!ormeo an! 2alaga ,ere t$e onl' can!i!ates ,$o (ile!
t$eir certi(icates o( can!i!ac' (or ma'or o( L%cena Cit' in t$e Ma'
10 /551 elections. 2alaga ,as t$en t$e inc%mbent ma'or. 2alaga
/5/
,as electe! ma'or in Ma' 188/. He serve! t$e (%ll term. #gain $e
,as reDelecte! in 188CD1888. *n t$e election o( 1888 $e lost to
2agarao. *n t$e recall election o( Ma' 1/ /555 $e again ,on an!
serve! t$e %ne4&ire! term o( 2agarao %ntil 7%ne 15 /551. On
Marc$ / /551 #!ormeo (ile! ,it$ t$e O((ice o( t$e =rovincial
3lection )%&ervisor L%cena Cit' a =etition to Den' D%e Co%rse to
or Cancel Certi(icate o( Can!i!ac' an!?or Dis.%ali(ication o( 2alaga
on t$e gro%n! t$at t$e latter ,as electe! an! $a! serve! as cit'
ma'or (or t$ree ;1< consec%tive terms as (ollo,s: ;1< in t$e election
o( Ma' 188/ ,$ere $e serve! t$e (%ll termA ;/< in t$e election o(
Ma' 188C ,$ere $e again serve! t$e (%ll termA an! ;1< in t$e
recall election o( Ma' 1/ /555 ,$ere $e serve! onl' t$e
%ne4&ire! term o( 2agarao a(ter $aving lost to 2agarao in t$e 1888
election. =etitioner conten!e! t$at 2alaga>s can!i!ac' as Ma'or
constit%te! a violation o( )ection 8 #rticle J o( t$e 1887
Constit%tion ,$ic$ &rovi!es t$at t$e term o( o((ice o( elective local
o((icials e4ce&t baranga' o((icials ,$ic$ s$all be !etermine! b'
la, s$all be t$ree 'ears an! no s%c$ o((icial s$all serve (or more
t$an t$ree consec%tive terms. Kol%ntar' ren%nciation o( t$e o((ice
(or an' lengt$ o( time s$all not be consi!ere! as an interr%&tion in
t$e contin%it' o( $is service (or t$e (%ll term (or ,$ic$ $e ,as
electe!. 2alaga res&on!e! t$at $e ,as not electe! Cit' Ma'or (or
t$ree ;1< consec%tive terms b%t onl' (or t,o ;/< consec%tive terms.
He &ointe! to $is !e(eat in t$e 1888 election b' 2agarao. Beca%se
o( $is !e(eat t$e consec%tiveness o( $is 'ears as ma'or ,as
interr%&te! an! t$%s $is ma'ors$i& ,as not (or t$ree consec%tive
terms o( t$ree 'ears eac$. -es&on!ent a!!e! t$at $is service (rom
Ma' 1/ /551 %ntil 7%ne 15 /551 (or 11 mont$s an! eig$teen ;18<
!a's ,as not a (%ll term in t$e contem&lation o( t$e la, an! t$e
Constit%tion.
2$e COM3L3C (o%n! 2alaga !is.%ali(ie! (or t$e &osition o( cit'
ma'or on t$e gro%n! t$at $e $a! alrea!' serve! t$ree ;1<
consec%tive terms an! $is Certi(icate o( Can!i!ac' ,as or!ere!
,it$!ra,n an!?or cancelle!. M- reverse! COM3L3C r%ling an! $el!
t$at 1< res&on!ent ,as not electe! (or t$ree ;1< consec%tive terms
beca%se $e !i! not ,in in t$e Ma' 11 1888 electionsA /< t$at $e
,as installe! onl' as ma'or b' reason o( $is victor' in t$e recall
electionsA 1< t$at $is victor' in t$e recall elections ,as not
consi!ere! a term o( o((ice an! is not incl%!e! in t$e 1Dterm
!is.%ali(ication r%le an! 0< t$at $e !i! not (%ll' serve t$e t$ree ;1<
consec%tive terms an! $is loss in t$e Ma' 11 1888 elections is
consi!ere! an interr%&tion in t$e contin%it' o( $is service as Ma'or
o( L%cena Cit'. On Ma' 18 /551 a(ter canvassing &rivate
res&on!ent ,as &roclaime! as t$e !%l' electe! Ma'or o( L%cena
Cit'.
*ss%e: 6ON COM3L3C 2alaga is .%ali(ie! to r%n (orMa'or in L%cena
Cit' (or t$e /551 elections.
=etitioner conten!s t$at &rivate res&on!ent ,as !is.%ali(ie!
to r%n (or cit' ma'or b' reason o( t$e t$reeDterm r%le
beca%se t$e %ne4&ire! &ortion o( t$e term o( o((ice $e
serve! a(ter ,inning a recall election covering t$e &erio!
Ma' 1/ /555 to 7%ne 15 /551 is consi!ere! a (%ll term. He
&osits t$at to inter&ret ot$er,ise &rivate res&on!ent ,o%l!
be serving (o%r ;0< consec%tive terms o( 15 'ears in
violation o( )ection 8 #rticle J o( 1887 Constit%tionU0V an!
)ection 01 ;b< o( -.#. 71G5 +no,n as t$e LGC.
=rivate res&on!ent in t%rn maintains t$at $is service as
cit' ma'or o( L%cena is not consec%tive. He lost $is bi! (or a
secon! reDelection in 1888 an! bet,een 7%ne 15 1888 to
Ma' 1/ /555 !%ring 2agarao>s inc%mbenc' $e ,as a
&rivate citiBen t$%s $e $a! not been ma'or (or 1
consec%tive terms.
*n its comment t$e COM3L3C restate! its &osition t$at
&rivate res&on!ent ,as not electe! (or t$ree ;1< consec%tive
terms $aving lost $is t$ir! bi! in t$e Ma' 11 1888 elections
sai! !e(eat is an interr%&tion in t$e contin%it' o( service as
cit' ma'or o( L%cena.
Bor9a Case: Case No. /. )%&&ose B is electe! ma'or an!
!%ring $is (irst term $e is t,ice s%s&en!e! (or miscon!%ct
(or a total o( 1 'ear. *( $e is t,ice reelecte! a(ter t$at can
$e r%n (or one more term in t$e ne4t electionT :es beca%se
$e $as serve! onl' t,o (%ll terms s%ccessivel'. 2o consi!er
C as eligible (or reelection ,o%l! be in accor! ,it$ t$e
%n!erstan!ing o( t$e Constit%tional Commission t$at ,$ile
t$e &eo&le s$o%l! be &rotecte! (rom t$e evils t$at a
mono&ol' o( &olitical &o,er ma' bring abo%t care s$o%l! be
ta+en t$at t$eir (ree!om o( c$oice is not %n!%l' c%rtaile!.
LonBani!a Case: 2,o con!itions (or t$e a&&lication o( t$e
!is.%ali(ication m%st conc%r: a< t$at t$e o((icial concerne!
$as been electe! (or t$ree consec%tive terms in t$e same
local government &ost an! /< t$at $e $as (%ll' serve! t$ree
consec%tive terms.
COM3L3C>s r%ling t$at &rivate res&on!ent ,as not electe!
(or t$ree ;1< consec%tive terms s$o%l! be %&$el!. For nearl'
/51
t,o 'ears $e ,as a &rivate citiBen. 2$e contin%it' o( $is
ma'ors$i& ,as !isr%&te! b' $is !e(eat in t$e 1888
elections.
=atentl' %ntenable is &etitioner>s contention t$at COM3L3C
in allo,ing res&on!ent 2alaga 7r. to r%n in t$e Ma' 1888
election violates #rticle J )ection 8 o( 1887 Constit%tion.
2o bolster $is case res&on!ent a!verts to t$e comment o(
Fr. 7oa.%in Bernas a Constit%tional Commission member
stating t$at in inter&reting sai! &rovision t$at Ei( one is
electe! re&resentative to serve t$e %ne4&ire! term o(
anot$er t$at %ne4&ire! no matter $o, s$ort ,ill be
consi!ere! one term (or t$e &%r&ose o( com&%ting t$e
n%mber o( s%ccessive terms allo,e!.F #s &ointe! o%t b' t$e
COM3L3C en banc Fr. Bernas> comment is &ertinent onl' to
members o( t$e Ho%se o( -e&resentatives. @nli+e local
government o((icials t$ere is no recall election &rovi!e! (or
members o( Congress.
Neit$er can res&on!ent>s victor' in t$e recall election be
!eeme! a violation o( )ection 8 #rticle J o( t$e Constit%tion
as Evol%ntar' ren%nciationF (or clearl' it is not. *n LonBani!a
vs. COM3L3C ,e sai!: 2$e secon! sentence o( t$e
constit%tional &rovision %n!er scr%tin' states EKol%ntar'
ren%nciation o( o((ice (or an' lengt$ o( time s$all not be
t$e (%ll term (or ,$ic$ $e ,as electe!.F 2$e clear intent o(
t$e (ramers o( t$e constit%tion to bar an' attem&t to
circ%mvent t$e t$reeDterm limit b' a vol%ntar' ren%nciation
o( o((ice an! at t$e same time res&ect t$e &eo&le>s c$oice
an! grant t$eir electe! o((icial (%ll service o( a term is
evi!ent in t$is &rovision. Kol%ntar' ren%nciation o( a term
!oes not cancel t$e reno%nce! term in t$e com&%tation o(
t$e t$ree term limitA conversel' invol%ntar' severance (rom
o((ice (or an' lengt$ o( time s$ort o( t$e (%ll term &rovi!e!
b' la, amo%nts to an interr%&tion o( contin%it' o( service.
2$e &etitioner vacate! $is &ost a (e, mont$s be(ore t$e
ne4t ma'oral elections not b' vol%ntar' ren%nciation b%t in
com&liance ,it$ t$e legal &rocess o( ,rit o( e4ec%tion iss%e!
b' t$e COM3L3C to t$at e((ect. )%c$ invol%ntar' severance
(rom o((ice is an interr%&tion o( contin%it' o( service an!
t$%s t$e &etitioner !i! not (%ll' serve t$e 188CD1888
ma'oral term.
(ocrates v. COM%L%C
Facts: On 7%l' / /55/ 11/ o%t o( C/8 members o( t$e t$en
inc%mbent baranga' o((icials o( t$e =%erto =rincesa convene!
t$emselves into a =re&arator' -ecall #ssembl' to initiate t$e recall
o( Kictorino Dennis M. )ocrates ,$o ass%me! o((ice as =%erto
=rincesa>s ma'or on 7%ne 15 /551. 2$e members o( t$e =-#
!esignate! Mar+ Davi! M. Hage!orn &resi!ent o( t$e #ssociation o(
Baranga' Ca&tains as interim c$air o( t$e =-#. =-# &asse! a
resol%tion ,$ic$ !eclare! its loss o( con(i!ence in )ocrates an!
calle! (or $is recall. 2$e =-# re.%este! t$e COM3L3C to sc$e!%le
t$e recall election (or ma'or ,it$in 15 !a's (rom recei&t o( t$e
-ecall -esol%tion. On 7%l' 1G /55/ )ocrates (ile! ,it$ t$e
COM3L3C a &etition to n%lli(' an! !en' !%e co%rse to t$e -ecall
-esol%tion. On #%g%st 10 /55/ t$e COM3L3C !ismisse! )ocrates>
&etition an! gave !%e co%rse to t$e -ecall -esol%tion an!
sc$e!%le! t$e recall election on )e&tember 7 /55/. On #%g%st /1
/55/ t$e COM3L3C en banc &rom%lgate! a resol%tion &rescribing
t$e calen!ar o( activities an! &erio!s o( certain &ro$ibite! acts in
connection ,it$ t$e recall election. 2$e COM3L3C (i4e! t$e
cam&aign &erio! (rom #%g%st /7 /55/ to )e&tember C /55/ or a
&erio! o( 15 !a's. On #%g%st /1 /55/. Hage!orn (ile! $is
certi(icate o( can!i!ac' (or ma'or in t$e recall election. #!ovo an!
Gilo (ile! a &etition to !is.%ali(' Hage!orn (rom r%nning in t$e
recall election an! to cancel $is certi(icate o( can!i!ac'. Ollave
an! Manaa' also. 2$e &etitions ,ere all anc$ore! on t$e gro%n!
t$at EHage!orn is !is.%ali(ie! (rom r%nning (or a (o%rt$ consec%tive
term $aving been electe! an! $aving serve! as ma'or o( t$e cit'
(or t$ree ;1< consec%tive (%ll terms imme!iatel' &rior to t$e instant
recall election (or t$e same &ost.F *n a resol%tion &rom%lgate! on
)e&tember /5 /55/ t$e COM3L3C !ismisse! (or lac+ o( merit an!
!eclare! Hage!orn .%ali(ie! to r%n in t$e recall election. 2$e
COM3L3C also reset t$e recall election (rom )e&tember 7 /55/ to
)e&tember /0 /55/. M- !enie!. Hage!orn ,on an! (ile! motions
to li(t t$e or!er restraining t$e COM3L3C (rom &roclaiming t$e
,inning can!i!ate an! to allo, $im to ass%me o((ice to give e((ect
to t$e ,ill o( t$e electorate.
*ss%es: 1. 6ON t$e COM3L3C committe! grave ab%se o( !iscretion
in giving !%e co%rse to t$e -ecall -esol%tion an! sc$e!%ling t$e
recall election (or ma'or o( =%erto =rincesa.
/50
)ocrates arg%es t$at t$e COM3L3C committe! grave ab%se
o( !iscretion in %&$ol!ing t$e -ecall -esol%tion !es&ite t$e
absence o( notice to 115 =-# members an! t$e !e(ective
service o( notice to ot$er =-# members. 2$e COM3L3C
$o,ever (o%n! t$at on vario%s !ates in t$e mont$ o( 7%ne
/55/ t$e &ro&onents (or t$e -ecall o( inc%mbent Cit' Ma'or
Kictorino Dennis M. )ocrates sent notices o( t$e convening
o( t$e =-# to t$e members t$ereo( &%rs%ant to )ection 75 o(
t$e LGC. Notices ,ere li+e,ise &oste! in cons&ic%o%s &laces
&artic%larl' at t$e Baranga' Hall. 2$e &ro&onents li+e,ise
%tiliBe! t$e broa!cast mass me!ia in t$e !issemination o(
t$e convening o( t$e =-#.
2$e Cit' 3lection O((icer o( =%erto =rincesa Cit' in $er
Certi(ication !ate! 15 7%l' /55/ certi(ie! t$at %&on a
]t$oro%g$ an! care(%l veri(ication o( t$e signat%res ma9orit'
o( all members o( t$e =-# concerne! a&&rove! sai!
resol%tion.> )$e li+e,ise certi(ie! ]t$at not a single
member?signator' o( t$e =-# com&laine! or ob9ecte! as to
t$e veracit' an! a%t$enticit' o( t$eir signat%res.>
2$e =rovincial 3lection )%&ervisor o( =ala,an #tt'. @rbano
#rlan!o in $is *n!orsement !ate! 15 7%l' /55/ state!
]%&on &ro&er revie, all !oc%ments s%bmitte! are (o%n! in
or!er.>
2$e #cting Director *K -egion *K (o%n! t$at t$e =-# ,as
vali!l' constit%te! an! t$at t$e ma9orit' o( all members
t$ereo( a&&rove! -esol%tion No. 51D5/ calling (or t$e recall
o( Ma'or Kictorino Dennis M. )ocrates.>
/. 6ON Hage!orn is .%ali(ie! to r%n (or ma'or in t$e recall
election o( =%erto =rincesa on )e&tember /0 /55/.
2$e t$reeDterm limit r%le (or elective local o((icials is (o%n!
in )ection 8 #rticle J o( t$e Constit%tion ,$ic$ states: 2$e
term o( o((ice o( elective local o((icials e4ce&t baranga'
o((icials ,$ic$ s$all be !etermine! b' la, s$all be t$ree
'ears an! no s%c$ o((icial s$all serve (or more t$an t$ree
consec%tive terms. Kol%ntar' ren%nciation o( t$e o((ice (or
an' lengt$ o( time s$all not be consi!ere! as an interr%&tion
in t$e contin%it' o( $is service (or t$e (%ll term (or ,$ic$ $e
,as electe!.F
2$is t$reeDterm limit r%le is reiterate! in )ection 01 ;b< o( -#
No. 71G5 ot$er,ise +no,n as t$e LGC ,$ic$ &rovi!es: No
local elective o((icial s$all serve (or more t$an t$ree ;1<
consec%tive terms in t$e same &osition. Kol%ntar'
t$e (%ll term (or ,$ic$ t$e elective o((icial ,as electe!.F
2$ese constit%tional an! stat%tor' &rovisions $ave t,o
&arts. 2$e (irst &art &rovi!es t$at an elective local o((icial
cannot serve (or more t$an t$ree consec%tive terms. 2$e
clear intent is t$at onl' consec%tive terms co%nt in
!etermining t$e t$reeDterm limit r%le. 2$e secon! &art
states t$at vol%ntar' ren%nciation o( o((ice (or an' lengt$ o(
time !oes not interr%&t t$e contin%it' o( service. 2$e clear
intent is t$at invol%ntar' severance (rom o((ice (or an'
lengt$ o( time interr%&ts contin%it' o( service an! &revents
t$e service be(ore an! a(ter t$e interr%&tion (rom being
9oine! toget$er to (orm a contin%o%s service or consec%tive
terms.
#(ter t$ree consec%tive terms an elective local o((icial
cannot see+ imme!iate reelection (or a (o%rt$ term. 2$e
&ro$ibite! election re(ers to t$e ne4t reg%lar election (or t$e
same o((ice (ollo,ing t$e en! o( t$e t$ir! consec%tive term.
#n' s%bse.%ent election li+e a recall election is no longer
covere! b' t$e &ro$ibition (or t,o reasons. First a
s%bse.%ent election li+e a recall election is no longer an
imme!iate reelection a(ter t$ree consec%tive terms.
)econ! t$e intervening &erio! constit%tes an invol%ntar'
interr%&tion in t$e contin%it' o( service.
2$e (ramers o( t$e Constit%tion t$%s clari(ie! t$at a )enator
can r%n a(ter onl' t$ree 'ears (ollo,ing $is com&letion o(
t,o terms. 2$e (ramers e4&ressl' ac+no,le!ge! t$at t$e
&ro$ibite! election re(ers onl' to t$e imme!iate reelection
an! not to an' s%bse.%ent election !%ring t$e si4D'ear
&erio! (ollo,ing t$e t,o term limit. 2$e (ramers o( t$e
Constit%tion !i! not inten! Et$e &erio! o( restF o( an elective
o((icial ,$o $as reac$e! $is term limit to be t$e (%ll e4tent
o( t$e s%ccee!ing term.
*n t$e case o( Hage!orn $is can!i!ac' in t$e recall election
on )e&tember /0 /55/ is not an imme!iate reelection a(ter
$is t$ir! consec%tive term ,$ic$ en!e! on 7%ne 15 /551.
2$e imme!iate reelection t$at t$e Constit%tion barre!
Hage!orn (rom see+ing re(erre! to t$e reg%lar elections in
/551. Hage!orn !i! not see+ reelection in t$e /551
elections.
/5C
Hage!orn ,as electe! (or t$ree consec%tive terms in t$e
188/ 188C an! 1888 elections an! serve! in (%ll $is t$ree
consec%tive terms as ma'or o( =%erto =rincesa. @n!er t$e
Constit%tion an! t$e LGC Hage!orn co%l! no longer r%n (or
ma'or in t$e /551 elections. 2$e Constit%tion an! t$e LGC
!is.%ali(ie! Hage!orn ,$o $a! reac$e! t$e ma4im%m
t$reeDterm limit (rom r%nning (or a (o%rt$ consec%tive term
as ma'or. 2$%s Hage!orn !i! not r%n (or ma'or in t$e
/551 elections. )ocrates ran an! ,on as ma'or o( =%erto
=rincesa in t$e /551 elections. #(ter Hage!orn cease! to be
ma'or on 7%ne 15 /551 $e became a &rivate citiBen %ntil
t$e recall election o( )e&tember /0 /55/ ,$en $e ,on b'
1518 votes over $is closest o&&onent )ocrates.
From 7%ne 15 /551 %ntil t$e recall election on )e&tember
/0 /55/ t$e ma'or o( =%erto =rincesa ,as )ocrates.
D%ring t$e same &erio! Hage!orn ,as sim&l' a &rivate
citiBen. 2$is &erio! is clearl' an interr%&tion in t$e
contin%it' o( Hage!orn>s service as ma'or not beca%se o(
$is vol%ntar' ren%nciation b%t beca%se o( a legal
&ro$ibition. Hage!orn>s t$ree consec%tive terms en!e! on
7%ne 15 /551. Hage!orn>s ne, recall term (rom )e&tember
/0 /55/ to 7%ne 15 /550 is not a seamless contin%ation o(
$is &revio%s t$ree consec%tive terms as ma'or. One cannot
stitc$ toget$er Hage!orn>s &revio%s t$reeDterms ,it$ $is
ne, recall term to ma+e t$e recall term a (o%rt$ consec%tive
term beca%se (act%all' it is not. #n invol%ntar' interr%&tion
occ%rre! (rom 7%ne 15 /551 to )e&tember /0 /55/ ,$ic$
bro+e t$e contin%it' or consec%tive c$aracter o( Hage!orn>s
service as ma'or.
LonBani!a Case: Kol%ntar' ren%nciation o( o((ice (or an'
lengt$ o( time s$all not be consi!ere! as an interr%&tion in
t$e contin%it' o( service (or t$e (%ll term (or ,$ic$ $e ,as
electe!.F 2$e clear intent o( t$e (ramers o( t$e constit%tion
to bar an' attem&t to circ%mvent t$e t$reeDterm limit b' a
vol%ntar' ren%nciation o( o((ice an! at t$e same time
res&ect t$e &eo&le>s c$oice an! grant t$eir electe! o((icial
(%ll service o( a term is evi!ent in t$is &rovision. Kol%ntar'
ren%nciation o( a term !oes not cancel t$e reno%nce! term
in t$e com&%tation o( t$e t$reeDterm limitA conversel'
invol%ntar' severance (rom o((ice (or an' lengt$ o( time
s$ort o( t$e (%ll term &rovi!e! b' la, amo%nts to an
interr%&tion o( contin%it' o( service.
*n Hage!orn>s case t$e nearl' 1CDmont$ &erio! $e ,as o%t
o( o((ice alt$o%g$ s$ort o( a (%ll term o( t$ree 'ears
constit%te! an interr%&tion in t$e contin%it' o( $is service as
ma'or. 2$e Constit%tion !oes not re.%ire t$e interr%&tion or
$iat%s to be a (%ll term o( t$ree 'ears. 2$e clear intent is
t$at interr%&tion E(or an' lengt$ o( timeF as long as t$e
ca%se is invol%ntar' is s%((icient to brea+ an elective local
o((icial>s contin%it' o( service.
#!ormeo Case: an interr%&tion consisting o( a &ortion o( a
term o( o((ice brea+s t$e contin%it' o( service o( an elective
local o((icial. 2$e iss%e in #!ormeo ,as ,$et$er 2alaga>s
recall term ,as a contin%ation o( $is &revio%s t,o terms so
t$at $e ,as !eeme! to $ave alrea!' serve! t$ree
consec%tive terms as ma'or. 2$e Co%rt r%le! t$at 2alaga
,as .%ali(ie! to r%n in t$e /551 elections stating t$at t$e
&erio! (rom 7%ne 15 1888 to Ma' 1/ /555 ,$en 2alaga ,as
o%t o( o((ice interr%&te! t$e contin%it' o( $is service as
ma'or. 2alaga>s recall term as ma'or ,as not consec%tive
to $is &revio%s t,o terms beca%se o( t$is interr%&tion t$ere
$aving been a brea+ o( almost t,o 'ears !%ring ,$ic$ time
2agarao ,as t$e ma'or.
*n t$e instant case ,e li+e,ise $ol! t$at t$e nearl' 1C
mont$s Hage!orn ,as o%t o( o((ice interr%&te! $is
contin%it' o( service an! &revents $is recall term (rom being
stitc$e! toget$er as a seamless contin%ation o( $is &revio%s
t$ree consec%tive terms. 2$e onl' !i((erence bet,een
#!ormeo an! t$e instant case is t$e time o( t$e interr%&tion.
*n #!ormeo t$e interr%&tion occ%rre! a(ter t$e (irst t,o
consec%tive terms. *n t$e instant case t$e interr%&tion
$a&&ene! a(ter t$e (irst t$ree consec%tive terms. *n bot$
cases t$e res&on!ents ,ere see+ing election (or a (o%rt$
term.
2$e &erio! o( time &rior to t$e recall term ,$en anot$er
elective o((icial $ol!s o((ice constit%tes an interr%&tion in
contin%it' o( service. Clearl' #!ormeo establis$e! t$e r%le
t$at t$e ,inner in t$e recall election cannot be c$arge! or
cre!ite! ,it$ t$e (%ll term o( t$ree 'ears (or &%r&oses o(
co%nting t$e consec%tiveness o( an elective o((icial>s terms
in o((ice. Hage!orn>s recall term !oes not retroact to incl%!e
t$e ten%re in o((ice o( )ocrates. Hage!orn can onl' be
!is.%ali(ie! to r%n in t$e )e&tember /0 /55/ recall election
i( t$e recall term is ma!e to retroact to 7%ne 15 /551 (or
/5G
onl' t$en can t$e recall term constit%te a (o%rt$ consec%tive
term. B%t to consi!er Hage!orn>s recall term as a (%ll term
o( t$ree 'ears retroacting to 7%ne 15 /551 !es&ite t$e (act
t$at $e ,on $is recall term onl' last )e&tember /0 /55/ is
to ignore realit'. 2$is Co%rt cannot !eclare as consec%tive
or s%ccessive terms o( o((ice ,$ic$ $istoricall' an! (act%all'
are not.
2o ma+e Hage!orn>s recall term retroact to 7%ne 15 /551
creates a legal (iction t$at %n!%l' c%rtails t$e (ree!om o( t$e
&eo&le to c$oose t$eir lea!ers t$ro%g$ &o&%lar elections.
2$e conce&t o( term limits is in !erogation o( t$e sovereign
,ill o( t$e &eo&le to elect t$e lea!ers o( t$eir o,n c$oosing.
2erm limits m%st be constr%e! strictl' to give t$e (%llest
&ossible e((ect to t$e sovereign ,ill o( t$e &eo&le.
# necessar' conse.%ence o( t$e interr%&tion o( contin%it' o(
service is t$e start o( a ne, term (ollo,ing t$e interr%&tion.
#n o((icial electe! in recall election serves t$e %ne4&ire!
term o( t$e recalle! o((icial. 2$is %ne4&ire! term is in itsel(
one term (or &%r&oses o( co%nting t$e t$reeDterm limit.
#n elective local o((icial ,$o serves a recall term can serve
(or more t$an nine consec%tive 'ears com&rising o( t$e
recall term &l%s t$e reg%lar t$ree (%ll terms. # local o((icial
,$o serves a recall term s$o%l! +no, t$at t$e recall term is
in itsel( one term alt$o%g$ less t$an t$ree 'ears. 2$is is t$e
in$erent limitation $e ta+es b' r%nning an! ,inning in t$e
recall election.
QQHage!orn is .%ali(ie! to r%n in t$e )e&tember /0 /55/ recall
election (or ma'or o( =%erto =rincesa beca%se:
1. Hage!orn is not r%nning (or imme!iate reelection (ollo,ing $is
t$ree consec%tive terms as ma'or ,$ic$ en!e! on 7%ne 15 /551A
/. Hage!orn>s contin%it' o( service as ma'or ,as invol%ntaril'
interr%&te! (rom 7%ne 15 /551 to )e&tember /0 /55/ !%ring
,$ic$ time $e ,as a &rivate citiBenA
1. Hage!orn>s recall term (rom )e&tember /0 /55/ to 7%ne 15
/550 cannot be ma!e to retroact to 7%ne 15 /551 to ma+e a (o%rt$
consec%tive term beca%se (act%all' t$e recall term is not a (o%rt$
consec%tive termA an!
0. 2erm limits s$o%l! be constr%e! strictl' to give t$e (%llest
&ossible e((ect to t$e rig$t o( t$e electorate to c$oose t$eir lea!ers.
Menoza v. COM%L%C
Osme@a v. COM%L%C
Facts: -# 75CG ;#n #ct =rovi!ing (or t$e National an! Local
3lections in 188/ =ave t$e 6a' (or )'nc$roniBe! an!
)im%ltaneo%s 3lections Beginning 188C an! #%t$oriBing
#&&ro&riations 2$ere(or< ,as enacte!. )%it ,as instit%te! b'
Governor OsmeRa Governor =ag!anganan on be$al( o( t$e Leag%e
o( Governors o( t$e =$ili&&ines -e&resentatives Garcia !el Mar
Bacaltos Cainglet an! G%anBon b' ,a' o( a &etition (or
=ro$ibition man!am%s an! *n9%nction ,it$ tem&orar' restraining
or!er an!?or &reliminar' in9%nction to &revent t$e im&lementation
o( sai! -# an! t$e conse.%ent e4&en!it%re o( &%blic (%n!s an! to
com&el t$e Comelec to imme!iatel' an! ,it$ all !eliberate s&ee!
set %& t$e mac$iner' an! ma+e t$e necessar' &re&aration (or t$e
$ol!ing o( s'nc$roniBe! national an! local elections on t$e secon!
Mon!a' o( Ma' 188/. 2$e' &ra' (or t$is Co%rt to !eclare -e&%blic
#ct No. 75CG as %nconstit%tional an! t$ere(ore invali! an!
ino&erative beca%se:
1. -e&%blic #ct 75CG violates t$e man!ate o( t$e Constit%tion (or
t$e $ol!ing o( s'nc$roniBe! national an! local elections on t$e
secon! Mon!a' o( Ma' 188/.
/. -e&%blic #ct 75CG &artic%larl' t$e /n! &aragra&$ o( )ection 1
t$ereo( &rovi!ing t$at all inc%mbent &rovincial cit' an! m%nici&al
o((icials s$all $ol! over be'on! 7%ne 15 188/ an! s$all serve %ntil
t$eir s%ccessors s$all $ave been !%l' electe! an! .%ali(ie! violates
)ection / #rticle JK*** ;2ransitor' =rovision< o( t$e Constit%tion.
1. 2$e same &aragra&$ o( )ection 1 o( -e&%blic #ct 75CG ,$ic$ in
e((ect s$ortens t$e term or ten%re o( o((ice o( local o((icials to be
electe! on t$e /n! Mon!a' o( November 188/ violates )ection 8
#rticle J o( t$e Constit%tion.
0. )ection 8 o( -e&%blic #ct 75CG &rovi!ing (or t$e cam&aign
&erio!s (or =resi!ential KiceD=resi!ential an! )enatorial elections
violates t$e &rovision o( )ection 8 #rticle *J %n!er t$e title
"Commission on 3lections" o( t$e Constit%tion.
C. 2$e soDcalle! man' !i((ic%lt i( not ins%rmo%ntable &roblems
mentione! in -e&%blic #ct 75CG to s'nc$roniBe! national an! local
elections set b' t$e Constit%tion on t$e secon! Mon!a' o( Ma'
188/ are not s%((icient m%c$ less vali! 9%sti(ication (or &ost&oning
t$e local elections to t$e secon! Mon!a' o( November 188/ an! in
t$e &rocess violating t$e Constit%tion itsel(. *( at all Congress can
!evise ,a's an! means ,it$in t$e &arameters o( t$e Constit%tion
/57
to eliminate or at least minimiBe t$ese &roblems an! i( t$is still is
not (easible resort can be ma!e to t$e sel(Dcorrecting mec$anism
b%ilt in t$e Constit%tion (or its amen!ment or revision. ;&&. 0DC
=etition<
)imilar claims $ave been ma!e in t$e ot$er cases mentione! in t$e
ca&tion.
2$e Co%rt in its -esol%tion !ate! 7%ne /7 1881 iss%e! a restraining
or!er "or!ering t$e res&on!ents an!?or an'one acting in t$eir
&lace or stea! or b' t$eir a%t$orit' to cease an! !esist (rom
im&lementing -e&%blic #ct 75CG ,$ic$ &rovi!es among ot$ers (or
t$e $ol!ing o( !es'nc$roniBe! national an! local elections in 188/."
;&. /8 -ollo< 2$e Co%rt also re.%ire! res&on!ents to comment on
t$e &etition ,it$in a nonDe4ten!ible &erio! o( ten ;15< !a's (rom
notice.
Commenting on t$e &etition as re.%ire! t$e )olicitor General &ra's
(or t$e !enial o( t$e &etition arg%ing t$at t$e .%estion raise! b'
&etitioners is &olitical in nat%re an! t$ere(ore be'on! t$e
9%ris!iction o( t$is Co%rt. He stresses citing National 3conomic
=rotective #ssociation v. Ong&in 171 )C-# GC7 t$at &etitioners
(aile! to s$o, 9%sti(ication (or t$e e4ercise o( its 9%!icial &o,er viB
;1< t$e e4istence o( an a&&ro&riate caseA ;/< an interest &ersonal
an! s%bstantial b' t$e &art' raising t$e constit%tional .%estionA ;1<
t$e &lea t$at t$e (%nction be e4ercise! at t$e earliest o&&ort%nit'A
an! ;0< t$e necessit' t$at t$e constit%tional .%estion be &asse!
%&on in or!er to !eci!e t$e case. He also .%estions t$e legal
stan!ing o( t$e &etitioners ,$o $e conten!s are merel' as+ing (or
an a!visor' o&inion (rom t$e Co%rt t$ere being no 9%sticiable
controvers' (or resol%tion.
On t$e merits o( t$e case t$e )olicitor General conten!s t$at
-e&%blic #ct 75CG is a vali! e4ercise o( legislative &o,er b'
Congress an! t$at t$e reg%lar amen!ing &rocess &rescribe! b' t$e
Constit%tion !oes not a&&l' to its transitor' &rovisions.
*ss%es: 1. 6ON t$e co%rt ma' act on t$e matter at bar.
6$at is be(ore %s is not a !iscretionar' act o( Congress or
t$e 34ec%tive t$at ma' not be revie,e! b' %s beca%se it is
&olitical in nat%re. 6$at is involve! $ere is t$e legalit' not
t$e ,is!om o( -# 75CG. #n! even i( ,e ,ere to ass%me t$at
t$e iss%e &resente! be(ore %s is &olitical in nat%re 6e
,o%l! still not be &recl%!e! (rom resolving it %n!er t$e
e4&an!e! 9%ris!iction con(erre! %&on %s t$at no, covers in
&ro&er cases even &olitical .%estions &rovi!e! nat%rall'
t$at t$e .%estion is not solel' an! e4cl%sivel' &olitical ;as
,$en t$e 34ec%tive e4ten!s recognition to a (oreign
government< b%t one ,$ic$ reall' necessitates a (ort$rig$t
!etermination o( constit%tionalit' involving as it !oes a
.%estion o( national im&ortance. #rticle K*** )ec. 1 o( t$e
1887 Constit%tion clearl' &rovi!es: 2$e 9%!icial &o,er s$all
be veste! in one )%&reme Co%rt an! in s%c$ lo,er co%rts as
ma' be establis$e! b' la,.
7%!icial &o,er incl%!es t$e !%t' o( t$e co%rts o( 9%stice to
settle act%al controversies involving rig$ts ,$ic$ are legall'
!eman!able an! en(orceable an! to !etermine ,$et$er or
not t$ere $as been a grave ab%se o( !iscretion amo%nting to
lac+ or e4cess o( 9%ris!iction on t$e &art o( an' branc$ or
instr%mentalit' o( t$e Government.
2$e iss%e &resente! to %s in t$e case at bar is 9%sticiable
rat$er t$an &olitical. 3ven i( t$e .%estion ,ere &olitical in
nat%re it ,o%l! still come ,it$in o%r &o,ers o( revie, %n!er
t$e e4&an!e! 9%ris!iction con(erre! %&on %s b' #rticle K***
)ection 1 o( t$e 1887 Constit%tion ,$ic$ incl%!es t$e
a%t$orit' to !etermine ,$et$er grave ab%se o( !iscretion
amo%nting to e4cess or lac+ o( 9%ris!iction $as been
committe! b' an' branc$ or instr%mentalit' o( t$e
government. #s (or t$e ot$er allege! &roce!%ral (la,s S
lac+ o( co%rt stan!ing etc. ass%ming t$e e4istence o( s%c$
(la,s t$e same ma' be br%s$e! asi!e con(ormabl' ,it$
e4isting !octrine so t$at t$e im&ortant constit%tional iss%e
raise! ma' be a!!resse!.
/. 6ON -# 75CG is constit%tional.
#rticle JK*** )ec /o( t$e 1887 Constit%tion: 2$e )enators
Members o( t$e Ho%se o( -e&resentatives an! t$e local
o((icials (irst electe! %n!er t$is Constit%tion s$all serve %ntil
noon o( 7%ne 15 188/. O( t$e )enators electe! in t$e
election in 188/ t$e (irst t,elve obtaining t$e $ig$est
n%mber o( votes s$all serve (or si4 'ear an! t$e remaining
t,elve (or t$ree 'ears.
)ec. C. 2$e si4D'ear term o( t$e inc%mbent =resi!ent an!
Kice =resi!ent electe! in t$e Febr%ar' 7 188G election is
(or &%r&oses o( s'nc$roniBation o( elections $ereb'
/58
e4ten!e! to noon o( 7%ne 15 188/. 2$e (irst reg%lar
elections (or =resi!ent an! KiceD=resi!ent %n!er t$is
Constit%tion s$all be $el! on t$e secon! Mon!a' o( Ma'
188/.
2erms o( o((ice o( )enators Members o( t$e Ho%se o(
-e&resentatives t$e local o((icials t$e =resi!ent an! t$e
KiceD=resi!ent $ave been s'nc$roniBe! to en! on t$e same
$o%r !ate an! 'ear S noon o( 7%ne 15 188/.
2erm o( s'nc$roniBation is %se! s'non'mo%sl' as t$e
&$rase $ol!ing sim%ltaneo%sl' since t$is is t$e &recise
intent in terminating t$eir O((ice 2en%re on t$e same !a' or
occasion. 2$is common termination !ate ,ill s'nc$roniBe
(%t%re elections to once ever' t$ree 'ears.
2$e Constit%tion $as man!ate! a s'nc$roniBe! national an!
local election &rior to 7%ne 15 188/ or more s&eci(icall' as
&rovi!e! (or in #rticle JK*** )ec. CDon t$e secon! Mon!a' o(
Ma' 188/.
2$e term o( o((ice o( elective local o((icials e4ce&t baranga'
o((icials is (i4e! b' t$e Constit%tion at t$ree 'ears ;)ec. 8
#rt. J<. 2$e inc%mbent local o((icials ,ere electe! in 7an%ar'
1888. 2$ere(ore t$eir term ,o%l! $ave e4&ire! on Febr%ar'
/ 1881. B%t t$eir term ,as a!9%ste! to e4&ire at noon o(
7%ne 15 188/. 2$e reason (or t$e sai! a!9%stment as ,ell
as t$ose o( t$e )enators members o( t$e Ho%se o(
-e&resentatives =resi!ent an! KiceD=resi!ent is t$e same
S to s'nc$roniBe t$e national an! local elections.
@&on t$e ot$er $an! an! contrar' to t$e e4&ress man!ate
o( t$e 1887 Constit%tion -e&%blic #ct 75CG &rovi!es (or t,o
;/< se&arate elections in 188/ as (ollo,s: )ec. /. )tart o(
)'nc$roniBation S 2o start t$e &rocess o( s'nc$roniBation o(
election in accor!ance ,it$ t$e &olic' $ereinbe(ore !eclare!
t$ere s$all be $el!: ;a< #n election (or =resi!ent an! KiceD
=resi!ent o( t$e =$ili&&ines t,ent' (o%r ;/0< )enators an!
all elective Members o( t$e Ho%se o( -e&resentatives on t$e
secon! Mon!a' o( Ma' 188/ an! ;b< #n election o( all
&rovincial cit' an! m%nici&al elective o((icials on t$e secon!
Mon!a' o( November 188/. 2$e &%r&ose o( -e&%blic #ct
75CG is as state! in )ection 1 t$ereo( %n!er t$e $ea!ing
")tatement o( =olic'" S to start as m%c$ as &racticable t$e
s'nc$roniBation o( t$e elections so t$at t$e &rocess can be
com&lete! in t$e 188C elections ,it$ t$e res%lt t$at
beginning 188C t$ere s$all be onl' one ;1< sim%ltaneo%s
reg%lar elections (or national an! local elective o((icials
ever' t$ree ;1< 'ears.
6it$ t$e clear man!ate o( t$e 1887 Constit%tion to $ol!
s'nc$roniBe! ;sim%ltaneo%s< national an! local elections in
t$e secon! Mon!a' o( Ma' 188/ t$e inevitable concl%sion
,o%l! be t$at -e&%blic #ct 75CG is clearl' violative o( t$e
Constit%tion beca%se it &rovi!es (or t$e $ol!ing o( a
!es'nc$roniBe! election. )tate! !i((erentl' -e&%blic #ct
75CG &artic%larl' )ections 1 an! / t$ereo( contravenes
#rticle JK*** )ections / an! C o( t$e 1887 Constit%tion.
Ot$er Consti &rovisions violate! b' -# 75CG:
1. )ection / #rticle JK*** o( t$e Constit%tion ,$ic$ &rovi!es
t$at t$e local o((icial (irst electe! %n!er t$e Constit%tion
s$all serve %ntil noon o( 7%ne 15 188/. B%t %n!er )ec. 1 o(
-# 75CG t$ese inc%mbent local o((icials s$all $ol! over
be'on! 7%ne 15 188/ an! s$all serve %ntil t$eir s%ccessors
s$all $ave been !%l' electe! an! .%ali(ie!. *t $as been $el!
t$at *t is not com&etent (or t$e legislat%re to e4ten! t$e
term o( o((icers b' &rovi!ing t$at t$e' s$all $ol! over %ntil
t$eir s%ccessors are electe! an! .%ali(ie! ,$ere t$e
constit%tion $as in e((ect or b' clear im&lication &rescribe!
t$e term an! ,$en t$e Constit%tion (i4es t$e !a' on ,$ic$
t$e o((icial term s$all begin t$ere is no legislative a%t$orit'
to contin%e t$e o((ice be'on! t$at &erio! even t$o%g$ t$e
s%ccessors (ail to .%ali(' ,it$ t$e time. #merican
7%ris&r%!ence: t$e legislat%re cannot b' an act &ost&oning
t$e election to (ill an o((ice t$e term o( ,$ic$ is limite! b'
t$e Constit%tion e4ten! t$e term o( t$e inc%mbent be'on!
t$e &erio! as limite! b' t$e Constit%tion.
/. )ection 8 #rticle J o( t$e Constit%tion ,$ic$ &rovi!es t$at:
2$e term o( o((ice o( elective local o((icials e4ce&t baranga'
o((icials ,$ic$ s$all be !etermine! b' la, s$all be t$ree
'ears an! no s%c$ o((icial s$all serve (or more t$an t$ree
consec%tive terms. B%t i( t$e local election ,ill be $el! on
t$e secon! Mon!a' o( November 188/ %n!er -# 75CG
t$ose to be electe! ,ill be serving (or onl' t,o 'ears an!
seven mont$s t$at is (rom November 15 188/ to 7%ne 15
188C not t$ree 'ears as &rovi!e! (or b' t$e Constit%tion.
1. )ection 8 #rticle *J o( t$e Constit%tion &rovi!es t$at: @nless
ot$er,ise (i4e! b' t$e Commission in s&ecial cases t$e
election &erio! s$all commence ninet' !a's be(ore t$e !a'
o( election an! s$all en! t$irt' !a's t$erea(ter. @n!er t$is
/58
&rovision t$e (iling o( t$e Certi(icate o( Can!i!ac' an! t$e
ens%ing cam&aign &erio! m%st be embrace! or
circ%mscribe! ,it$in t$at election &erio! o( ninet' !a's
e4ce&t ,$en in s&ecial cases t$e Comelec ;not Congress<
alters t$e &erio!. B%t -# 75CG &rovi!es (or a !i((erent
cam&aign &erio! as (ollo,s: )ec. 8. ;a< For =resi!ent ari!
KiceD=resi!ential elections one $%n!re! t$irt' ;115< !a's
be(ore t$e !a' o( election. ;b< For )enatorial elections
ninet' ;85< !a's be(ore t$e !a' o( t$e election an! ;c< For
t$e election o( Members o( t$e Ho%se o( -e&resentatives
an! local elective &rovincial cit' an! m%nici&al o((icials
(ort'D(ive ;0C< !a's be(ore t$e !a' o( t$e elections.
QQ#ll t$ese S t$e &ost&onement o( t$e $ol!ing o( a s'nc$roniBe!
national an! local election (rom 188/ to 188CA t$e $ol!Dover
&rovision (or inc%mbent local o((icialsA t$e re!%ction o( t$e term o(
o((ice o( local o((icials to be electe! on t$e secon! Mon!a' o(
November 188/ an! t$e c$ange in t$e cam&aign &erio!s are
violative o( t$e 1887 Constit%tion.
QQ2$e contention o( t$e )olicitor General t$at t$e met$o! o(
amen!ment or revision &rescribe! b' t$e Constit%tion ;#rticle JK***<
!oes not a&&l' to t$e 2ransitor' =rovisions beca%se in t$e nat%re o(
t$ings 2ransitor' =rovisions are to be carrie! o%t as soon as
&racticable an! Congress can in t$e e4ercise o( its legislative
&o,er enact t$e nee!e! legislation in t$is case -# 75CG !eserves
no consi!eration at all. 2$e 1887 Constit%tion $as state! in clear
an! categorical lang%age t$at "t$e si4D'ear term o( t$e inc%mbent
=resi!ent an! KiceD=resi!ent electe! in t$e Febr%ar' 7 188G
election is (or &%r&oses o( s'nc$roniBation o( elections $ereb'
e4ten!e! to noon o( 7%ne 15 188/ ;#rticle JK*** )ec. C<." #s
!isc%sse! earlier t$e elections re(erre! to to be s'nc$roniBe! ,it$
t$e election o( t$e =resi!ent an! KiceD=resi!ent on t$e secon!
Mon!a' o( Ma' 188/ is t$e election (or )enators Members o( t$e
Ho%se o( -e&resentatives an! local o((icials.
QQ)'nc$roniBation S as t$e act or res%lt o( s'nc$roniBingA
conc%rrence o( events or motions in res&ect to time.
)'nc$roniBe S to $a&&en or ta+e &lace at t$e same timeA to
re&resent or arrange event so as to in!icate coinci!ence or coD
e4istenceA to ca%se to agree in time.
/15
Labo- +r. v. COM%L%C /supra- see p.0=C1
Menzon v. Petilla
Facts: On Febr%ar' 1G 1888 b' virt%e o( t$e (act t$at no Governor
$a! been &roclaime! in t$e &rovince o( Le'te )ecretar' o( Local
Government )antos !esignate! KiceDGovernor =etilla as #cting
Governor o( Le'te. On Marc$ /C 1888 MenBon a senior member
o( t$e )angg%niang =anlala,igan ,as also !esignate! b' )antos to
act as t$e KiceDGovernor (or t$e &rovince o( Le'te. On Ma' /8
1888 =rovincial #!ministrator W%intero in.%ire! (rom t$e
@n!ersecretar' o( t$e De&artment o( Local Government -%billar as
to t$e legalit' o( t$e a&&ointment o( t$e &etitioner to act as t$e
KiceDGovernor o( Le'te. *n $is re&l' letter !ate! 7%ne // 1888
-%billar state! t$at since B.=. 117 $as no &rovision relating to
s%ccession in t$e O((ice o( t$e KiceDGovernor in case o( a
tem&orar' vacanc' t$e a&&ointment o( MenBon as t$e tem&orar'
KiceD Governor is not necessar' since t$e KiceDGovernor ,$o is
tem&oraril' &er(orming t$e (%nctions o( t$e Governor co%l!
conc%rrentl' ass%me t$e (%nctions o( bot$ o((ices. #s a res%lt o( t$e
(oregoing comm%nications bet,een W%intero an! -%billar t$e
)angg%niang =anlala,igan in a s&ecial session $el! on 7%l' 7
1888 iss%e! -esol%tion C5C ,$ere it $el! invali! t$e a&&ointment
o( t$e &etitioner as acting KiceDGovernor o( Le'te on t$e gro%n!
t$at t$ere is no &ermanent vacanc' in sai! o((ice since =etilla
ass%me! t$e O((ice o( t$e KiceDGovernor a(ter $e too+ $is oat$ o(
o((ice to sai! &osition. MenBon t$ro%g$ t$e acting LD= -egional
Co%nsel #tt'. #legre so%g$t clari(ication (rom @n!ersecretar'
-%billar regar!ing t$e 7%ne // 1888 o&inion. #ccor!ing to -%billar
t$e &ec%liar sit%ation in t$e =rovince o( Le'te ,$ere t$e electoral
controvers' in t$e O((ice o( t$e Governor $as not 'et been settle!
calls (or t$e !esignation o( t$e )angg%niang Member to act as viceD
governor tem&oraril'. *n vie, o( t$e clari(icator' letter o( -%billar
t$e -egional Director o( t$e De&artment o( Local Government
-egion 8 )alvatierra on 7%l' 17 1888 ,rote a letter a!!resse! to
t$e #ctingDGovernor =etilla re.%esting t$e latter t$at -esol%tion
No. C5C o( t$e )angg%niang =anlala,igan be mo!i(ie! accor!ingl'
as to &revio%s actions ma!e b' $is o((ice an! t$ose o( t$e
)angg%niang =anlala,igan ,$ic$ ma' $ave ten!e! to !iscre!it t$e
vali!it' o( MenBonHs !esignation as acting viceDgovernor incl%!ing
t$e &a'ment o( $is salar' as #cting KiceDGovernor i( $e ,as
!e&rive! o( s%c$. On #%g%st 1 1888 t$e -egional Director ,rote
anot$er letter to #ctingDGovernor =etilla reiterating $is earlier
re.%est. Des&ite t$ese several letters o( re.%est t$e #cting
Governor an! t$e )angg%niang =anlala,igan re(%se! to correct
-esol%tion C5C an! corres&on!ingl' to &a' t$e &etitioner t$e
/11
emol%ments attac$e! to t$e O((ice o( KiceDGovernor. 2$%s on
November 1/ 1888 t$e MenBon (ile! be(ore t$is Co%rt a &etition
(or certiorari an! man!am%s. 2$e &etition so%g$t t$e n%lli(ication o(
-esol%tion No. C5C an! (or t$e &a'ment o( $is salar' (or $is
services as t$e acting KiceDGovernor o( Le'te. *n t$e meantime
$o,ever t$e iss%e on t$e governors$i& o( Le'te ,as settle! an!
#!elina LarraBabal ,as &roclaime! t$e Governor o( t$e &rovince o(
Le'te. D%ring t$e &en!enc' o( t$e &etition more &artic%larl' on
Ma' 1G 1885 t$e &rovincial treas%rer o( Le'te Florencio L%na
allo,e! t$e &a'ment to t$e &etitioner o( $is salar' as acting KiceD
Governor o( Le'te in t$e amo%nt o( =17715.55 (or t$e act%al
services ren!ere! b' t$e &etitioner as acting KiceDGovernor. On
#%g%st /8 1885 t$is Co%rt !ismisse! t$e &etition (ile! b' #%relio
D. MenBon. On )e&tember G 1885 =etilla b' virt%e o( t$e above
resol%tion re.%este! Governor LarraBabal to !irect t$e &etitioner to
&a' bac+ to t$e &rovince o( Le'te all t$e emol%ments an!
com&ensation ,$ic$ $e receive! ,$ile acting as t$e KiceDGovernor
o( Le'te. On )e&tember /1 1885 t$e &etitioner (ile! a motion (or
reconsi!eration o( o%r resol%tion. 2$e motion &ra'e! t$at t$is Co%rt
%&$ol! t$e &etitionerHs rig$t to receive t$e salar' an! emol%ments
attac$e! to t$e o((ice o( t$e KiceDGovernor ,$ile $e ,as acting as
s%c$.
*ss%es: 1.6ON t$ere ,as a vacanc'
2$e la, on =%blic O((icers is clear on t$e matter. 2$ere is no
vacanc' ,$enever t$e o((ice is occ%&ie! b' a legall'
.%ali(ie! inc%mbent. # sens% contrario t$ere is a vacanc'
,$en t$ere is no &erson la,(%ll' a%t$oriBe! to ass%me an!
e4ercise at &resent t$e !%ties o( t$e o((ice.
#&&l'ing t$e !e(inition o( vacanc' to t$is case it can be
rea!il' seen t$at t$e o((ice o( t$e KiceDGovernor ,as le(t
vacant ,$en t$e !%l' electe! KiceDGovernor Leo&ol!o =etilla
,as a&&ointe! #cting Governor. *n t$e e'es o( t$e la, t$e
o((ice to ,$ic$ $e ,as electe! ,as le(t barren o( a legall'
.%ali(ie! &erson to e4ercise t$e !%ties o( t$e o((ice o( t$e
KiceDGovernor.
2$ere is no satis(actor' s$o,ing t$at Leo&ol!o =etilla
not,it$stan!ing $is s%ccession to t$e O((ice o( t$e
Governor contin%e! to sim%ltaneo%sl' e4ercise t$e !%ties
o( t$e KiceDGovernor. 2$e nat%re o( t$e !%ties o( a =rovincial
Governor call (or a (%llDtime occ%&ant to !isc$arge t$em.
More so ,$en t$e vacanc' is (or an e4ten!e! &erio!. *t ,as
=etillaHs a%tomatic ass%m&tion to t$e acting Governors$i&
t$at res%lte! in t$e vacanc' in t$e o((ice o( t$e KiceD
Governor. 2$e (act t$at t$e )ecretar' o( Local Government
,as &rom&te! to a&&oint t$e &etitioner s$o,s t$e nee! to
(ill %& t$e &osition !%ring t$e &erio! it ,as vacant. 2$e
De&artment )ecretar' $a! t$e !iscretion to ascertain
,$et$er or not t$e =rovincial Governor s$o%l! !evote all $is
time to t$at &artic%lar o((ice. Moreover it is !o%bt(%l i( t$e
=rovincial Boar! %nilaterall' acting ma' revo+e an
a&&ointment ma!e b' a $ig$er a%t$orit'.
/. 6ON t$e )ecretar' o( Local Government $as t$e a%t$orit'
to ma+e tem&orar' a&&ointments. :3).
@n!er t$e circ%mstances o( t$is case ;t$ere $a! been no !e
9%re &ermanent Governor (or t$e &rovince o( Le'te (or abo%t
t,o 'ears Governor #!elina LarraBabal at t$at time $a!
not 'et been &roclaime! !%e to a &en!ing election case<
an! consi!ering t$e silence o( t$e LGC t$e Co%rt r%les t$at
in or!er to obviate t$e !ilemma res%lting (rom an
interregn%m create! b' t$e vacanc' t$e =resi!ent acting
t$ro%g$ $er alter ego t$e )ecretar' o( Local Government
ma' reme!' t$e sit%ation. MenBon>s tem&orar'
a&&ointment vali!.
2$e recor!s s$o, t$at it ,as &rimaril' (or t$is contingenc'
t$at @n!ersecretar' -%billar correcte! an! reconsi!ere! $is
&revio%s &osition an! ac+no,le!ge! t$e nee! (or an acting
KiceDGovernor.
*t ma' be note! t$at %n!er Common,ealt$ #ct No. C88 an!
t$e -evise! #!ministrative Co!e o( 1887 t$e =resi!ent is
em&o,ere! to ma+e tem&orar' a&&ointments in certain
&%blic o((ices in case o( an' vacanc' t$at ma' occ%r. #lbeit
bot$ la,s !eal onl' ,it$ t$e (illing o( vacancies in a&&ointive
&ositions. Ho,ever in t$e absence o( an' contrar' &rovision
in t$e LGC an! in t$e best interest o( &%blic service ,e see
no cogent reason ,$' t$e &roce!%re t$%s o%tline! b' t$e
t,o la,s ma' not be similarl' a&&lie! in t$e &resent case.
2$e res&on!ents conten! t$at t$e &rovincial boar! is t$e
correct a&&ointing &o,er. 2$is arg%ment $as no merit. #s
bet,een t$e =resi!ent ,$o $as s%&ervision over local
governments as &rovi!e! b' la, an! t$e members o( t$e
boar! ,$o are 9%nior to t$e viceDgovernor ,e $ave no
&roblem r%ling in (avor o( t$e =resi!ent %ntil t$e la,
&rovi!es ot$er,ise.
/1/
# vacanc' creates an anomalo%s sit%ation an! (in!s no
a&&robation %n!er t$e la, (or it !e&rives t$e constit%ents o(
t$eir rig$t o( re&resentation an! governance in t$eir o,n
local government.
*n a re&%blican (orm o( government t$e ma9orit' r%les
t$ro%g$ t$eir c$osen (e, an! i( one o( t$em is
inca&acitate! or absent etc. t$e management o(
governmental a((airs to t$at e4tent ma' be $am&ere!.
Necessaril' t$ere ,ill be a conse.%ent !ela' in t$e !eliver'
o( basic services to t$e &eo&le o( Le'te i( t$e Governor or
t$e KiceDGovernor is missing.
2$e a&&ointment o( t$e &etitioner moreover is in (%ll
accor! ,it$ t$e intent be$in! t$e LGC. 2$ere is no .%estion
t$at )ection 08 in connection ,it$ )ection C/ o( t$e LGC
s$o,s clearl' t$e intent to &rovi!e (or contin%it' in t$e
&er(ormance o( t$e !%ties o( t$e KiceDGovernor.
2$e LGC &rovi!es (or t$e mo!e o( s%ccession in case o( a
&ermanent vacanc'. )ection 08: *n case a &ermanent
vacanc' arises ,$en a KiceDGovernor ass%mes t$e O((ice o(
t$e Governor . . . re(%ses to ass%me o((ice (ails to .%ali('
!ies is remove! (rom o((ice vol%ntar' resigns or is
ot$er,ise &ermanentl' inca&acitate! to !isc$arge t$e
(%nctions o( $is o((ice t$e sangg%niang &anlala,igan . . .
member ,$o obtaine! t$e $ig$est n%mber o( votes in t$e
election imme!iatel' &rece!ing . . . s$all ass%me t$e o((ice
(or t$e %ne4&ire! term o( t$e KiceDGovernor. . . .
B' virt%e o( t$e s%rro%n!ings circ%mstance o( t$is case t$e
mo!e o( s%ccession &rovi!e! (or &ermanent vacancies ma'
li+e,ise be observe! in case o( a tem&orar' vacanc' in t$e
same o((ice. *n t$is case t$ere ,as a nee! to (ill t$e
vacanc'. 2$e &etitioner is $imsel( t$e member o( t$e
)angg%niang =anlala,igan ,$o obtaine! t$e $ig$est
n%mber o( votes. 2$e De&artment )ecretar' acte! correctl'
in e4ten!ing t$e tem&orar' a&&ointment.
MenBon m%st be &ai! $is salar' attac$e! to $is o((ice b%t
onl' t$e remain!er. 3ven granting t$e =resi!ent acting
t$ro%g$ t$e )ecretar' o( Local Government &ossesses no
&o,er to a&&oint t$e &etitioner at t$e ver' least t$e
&etitioner is a !e (acto o((icer entitle! to
com&ensation.2$ere is no !en'ing t$at t$e &etitioner
ass%me! t$e O((ice o( t$e KiceDGovernor %n!er color o( a
+no,n a&&ointment. 2$e res&on!ents t$emselves
ac+no,le!ge! t$e vali!it' o( t$e &etitionerHs a&&ointment
an! !ealt ,it$ $im as s%c$. *t ,as onl' ,$en t$e
controversial -esol%tion No. C5C ,as &asse! b' t$e same
&ersons ,$o recogniBe! $im as t$e acting KiceDGovernor
t$at t$e vali!it' o( t$e a&&ointment o( t$e &etitioner ,as
ma!e an iss%e an! t$e recognition ,it$!ra,n.
*ocena v. (angguniang Panlala"igan o! %astern (amar
Facts: Ca&ito a member o( t$e )angg%niang =anlala,igan o(
3astern )amar !ie! in o((ice. )ecretar' )antos o( t$e DLG
a&&ointe! Docena to s%ccee! Ca&ito on November 18 1885. 2$e
recor! !oes not s$o, ,$' b%t on November /7 1885 #lar ,as
a&&ointe! also b' )antos to t$e &osition alrea!' occ%&ie! b'
Docena. On December 18 885 t$e )=3) &asse! -esol%tion 7C
recogniBing #lar rat$er t$an Docena as t$e legitimate s%ccessor o(
t$e late Boar! Member Ca&ito. 2$e (ollo,ing !a' t$e )=3) ,as in
e((ect reverse! b' )ecretar' )antos. 2$is action ,as a((irme! in a
First *n!orsement !ate! 7an%ar' 0 1881 signe! b' Hea! 34ec%tive
#ssistant #g%n!o o( t$e De&artment o( Local Government. 2$e
reaction o( t$e )=3) ,as to &ass -esol%tion No. 1 !ate! 7an%ar' 8
1881 ,$ere it reiterate! its &revio%s recognition o( #lar an!
!eclare! t$at "t$e recall or!er iss%e! b' )ecretar' )antos !ate!
December 18 1885 recalling t$e a&&ointment o( #tt'. #lar $as no
legal basis in (act an! in la, an! iss%e! to (it $is ,$imsical
ca&ricio%s an! ,is$'D,as$' !esires to t$e !etriment o( !ecenc'
an! !%e &rocess o( la,. On t$e same !ate =rovincial =rosec%tor
Labra!or $a! ren!ere! an o&inion t$at t$e recall or!er o( )ecretar'
)antos ,as "voi! ab initio"H beca%se #larHs rig$t to t$e o((ice "$a!
become veste!." *t is not clear i( )ecretar' )antos agree! ,it$
t$ese vie,s b%t at an' rate $e iss%e! on Febr%ar' /5 1881
anot$er recall or!er t$is time a!!resse! to Docena. Docena t$en
came to t$is Co%rt in a &etition (or man!am%s to com&el t$e
res&on!ents to recogniBe an! a!mit $im as a la,(%ll' a&&ointe!
member o( t$e )=3) an! also see+s to $ol! t$em o((iciall' an!
&ersonall' liable in !amages (or t$eir re(%sal to !o so in s&ite o( $is
clear title to t$e !is&%te! o((ice. 2-O iss%e! en9oining bot$ Docena
an! #lar (rom ass%ming t$e o((ice o( member o( t$e )angg%niang
=anlala,igan o( 3astern )amar.
*ss%e: 1. 6ON Docena ma' be recogniBe! an! &ro&erl' a!mitte! to
o((ice.
/11
)ec. C5. =ermanent Kacancies in Local )angg%nians. S *n
case o( &ermanent vacanc' in t$e sangg%niang
&anlala,igan sangg%niang &anl%ngso! sangg%niang
ba'an or sangg%niang baranga' t$e =resi!ent o( t$e
=$ili&&ines %&on recommen!ation o( t$e Minister o( Local
Government s$all a&&oint a .%ali(ie! &erson to (ill t$e
vacanc' in t$e sangg%niang &anlala,igan an! t$e
sangg%niang &anl%ngso!A t$e governor in t$e case o(
sangg%niang ba'an membersA or t$e cit' or m%nici&al
ma'or in t$e case o( sangg%niang baranga' members.
34ce&t (or t$e sangg%niang baranga' t$e a&&ointee s$all
come (rom t$e &olitical &art' o( t$e sangg%nian member
,$o ca%se! t$e vacanc' an! s$all serve t$e %ne4&ire!
term o( t$e vacant o((ice.
2$e &etitioner ma+es t$e &oint an! it $as not been !is&%te!
b' t$e res&on!ents t$at bot$ $e an! Ca&ito ran (or t$e
&rovincial boar! in t$e 1888 elections %n!er t$e banner o(
La+as ng Bansa. Later t$e' bot$ 9oine! t$e Laban ng
Demo+rati+ong =ili&ino %n!er t$e lea!ers$i& o( )&ea+er
Mitra ,$o a!ministere! t$e oat$ o( o((ice to $im ,$en $e
,as a&&ointe! to t$e )=3) on November 18 1885. Docena
arg%es t$at $e $as a &re(erential rig$t to t$e !is&%te! o((ice
even on e.%itable gro%n!s beca%se $e &lace! nint$ in t$e
election ne4t to Ca&ito com&are! to #lar ,$o !i! not even
r%n (or t$e o((ice.
From t$e tenor o( t$e a&&ointment e4ten!e! to Docena on
November 18 1885 t$ere is no .%estion t$at it ,as
inten!e! to be &ermanent to (ill t$e &ermanent vacanc'
ca%se! b' Ca&itoHs !eat$. #s s%c$ it ,as to be vali! (or t$e
%ne4&ire! &ortion o( t$e term o( t$e !ecease! member ,$o
,as entitle! to serve "%ntil noon o( 7%ne 15 188/" in
accor!ance ,it$ #rticle JK*** )ection / o( t$e Constit%tion.
2$e sai! a&&ointment $a! been acce&te! b' Docena ,$o
$a! in (act alrea!' ass%me! o((ice as member o( t$e )=3)
as &er certi(ication o( t$e =rovincial )ecretar'. For all legal
intents an! &%r&oses t$e &etitionerHs a&&ointment $a!
alrea!' become com&lete an! en(orceable at t$e time it
,as s%&&ose! to $ave been "s%&erse!e!" b' t$e
a&&ointment in (avor o( #lar.
2$e res&on!ents are ambivalent abo%t t$e &o,er o( t$e
)ecretar' o( Local Government to recall $is a&&ointments.
2$e' !escribe! t$e a&&ointment as ",$imsical ca&ricio%s
an! ,is$'D,as$'" b%t t$e' $a! no similar com&laints abo%t
t$e recall o( DocenaHs a&&ointment alt$o%g$ also a&&arentl'
in!ecisive. On t$e contrar' t$e' maintaine! a !ee& silence
abo%t t$is ot$er recall an! insiste! sim&l' t$at t$e
s%bse.%ent a&&ointment o( #lar $a! invali!ate! t$e earlier
a&&ointment o( Docena. *t is note,ort$' t$at absol%tel' no
reason ,as given (or t$e recall o( DocenaHs a&&ointment ;or
(or t$at matter t$e recall o( #larHs a&&ointment<. *t a&&ears
t$at a(ter a&&ointing Docena an! later t,ice s%staining $is
title to t$e o((ice )ecretar' )antos sim&l' $a! a c$ange o(
$eart an! !eci!e! to a,ar! t$e &osition to #lar.
DocenaHs a&&ointment $aving been iss%e! an! acce&te!
earlier an! t$e &etitioner $aving alrea!' ass%me! o((ice $e
co%l! not t$erea(ter be 9%st recalle! an! re&lace! to
accommo!ate #lar. 2$e a&&ointment ,as &ermanent in
nat%re an! (or t$e %ne4&ire! &ortion o( t$e !ecease!
&re!ecessorHs term. Docena $a! alrea!' ac.%ire! sec%rit'
o( ten%re in t$e &osition an! co%l! be remove! t$ere(rom
onl' (or an' o( t$e ca%ses an! con(ormabl' to t$e
&roce!%re &rescribe! b' t$e LGC. 2$ese re.%irements
co%l! not be circ%mvente! b' t$e sim&le &rocess o(
recalling $is a&&ointment.
6$atever gave t$e )=3) t$e im&ression t$at t$e .%estione!
a&&ointments ,ere revocable at ,ill can onl' be le(t to
con9ect%reA ,$at is certain is t$at it ,as not base! on
care(%l legal st%!'. 2$e =rovincial =rosec%torHs o&inion t$at
t$e o((ice $a! "become veste!" in #lar s%((ers (rom t$e
same (la, an! a lac+ o( %n!erstan!ing o( t$e nat%re o( a
&%blic o((ice. =olitical rat$er t$an legal consi!erations seem
to $ave in(l%ence! t$e action o( t$e &rovincial government
in re9ecting t$e &etitionerHs claim !es&ite its obvio%s merit.
/. 6ON man!am%s is t$e &ro&er action.
2$e res&on!ents also arg%e t$at t$e &etitioner s$o%l! $ave
so%g$t to en(orce $is claime! rig$t in a &etition not (or
man!am%s b%t (or .%o ,arranto as $is &%r&ose is to
c$allenge #larHs title to t$e !is&%te! o((ice. 2$at is onl'
secon!ar' in t$is case. 2$e real &%r&ose o( t$e &resent
&etition is to com&el t$e res&on!ent )=3) to recogniBe an!
a!mit Docena as a member o( t$e bo!' b' virt%e o( a vali!
a&&ointment e4ten!e! to $im b' t$e )ecretar' o( Local
Government.
/10
Man!am%s is em&lo'e! to com&el t$e &er(ormance o( a
ministerial !%t' to ,$ic$ t$e &etitioner is entitle!. *n arg%ing
t$at t$e recognition an! a!mission o( t$e &etitioner is not a
ministerial !%t' t$e res&on!ents are asserting t$e
!iscretion to revie, an! i( t$e' so !eci!e re9ect t$e
)ecretar'Hs a&&ointment. 2$e' $ave no s%c$ a%t$orit'.
Face! ,it$ a strictl' legal .%estion t$e' $a! no rig$t an!
com&etence to resolve it in t$eir !iscretion. 6$at t$e'
s$o%l! $ave !one ,as reserve t$eir 9%!gment on t$e matter
leaving it to t$e co%rts o( 9%stice to !eci!e ,$ic$ o( t$e
con(licting claims s$o%l! be %&$el!. #s a local legislative
bo!' s%b9ect to t$e general s%&ervision o( t$e =resi!ent o(
t$e =$ili&&ines t$e )=3) $a! no !iscretion to r%le on t$e
vali!it' o( t$e !ecisions o( t$e )ecretar' o( Local
Government acting as $er alter ego.
3ven ass%ming t$at t$e &ro&er reme!' is a &etition (or .%o
,arranto t$e Co%rt ma' in its o,n !iscretion consi!er t$e
&resent &etition a. s%c$ an! !eal ,it$ it accor!ingl'. 6e (in!
t$at as a &etition (or .%o ,arranto it com&lies ,it$ t$e
&rescribe! re.%irements to ,it t$at it be (ile! on time an!
b' a &ro&er &art' asserting title to t$e o((ice also claime! b'
t$e res&on!ent. #cting t$ereon ,e $ol! t$at Docena $as
&rove! $is rig$t to t$e !is&%te! o((ice an! co%l! not be
legall' re&lace! b' #lar.
/. 6ON !amages ma' be claime!.
2$e Co%rt ,ill ma+e no a,ar! o( !amages t$ere being no
s%((icient &roo( to overcome t$e &res%m&tion t$at t$e
res&on!ents $ave acte! in goo! (ait$ albeit erroneo%sl'.
Nevert$eless t$e &etitioner is entitle! to t$e &a'ment o( t$e
salaries an! ot$er bene(its a&&%rtenant to t$e o((ice o( a
Member o( t$e )angg%niang =anlala,igan o( 3astern )amar
(rom t$e time o( $is ass%m&tion o( o((ice an! %ntil $e is
act%all' a!mitte! or reinstate!.
*e Rama v. CA
Facts: @&on $is ass%m&tion to t$e &osition o( Ma'or o( =agbilao
W%eBon !e -ama ,rote a letter !ate! 7%l' 11 188C to t$e Civil
)ervice Commission see+ing t$e recall o( t$e a&&ointments o(
(o%rteen ;10< m%nici&al em&lo'ees. De -ama 9%sti(ie! $is recall
re.%est on t$e allegation t$at t$e a&&ointments o( t$e sai!
em&lo'ees ,ere Emi!nig$tF a&&ointments o( t$e (ormer ma'or
#be9a !one in violation o( #rticle K** )ection 1C o( t$e 1887
Constit%tion ,$ic$ &rovi!es t$at t,o mont$s imme!iatel' be(ore
t$e ne4t &resi!ential elections an! %& to t$e en! o( $is term a
=resi!ent or #cting =resi!ent s$all not ma+e a&&ointments e4ce&t
tem&orar' a&&ointments to e4ec%tive &ositions ,$en contin%e!
vacancies t$erein ,ill &re9%!ice &%blic service or en!anger &%blic
sa(et'. 6$ile t$e matter ,as &en!ing be(ore t$e C)C t$ree o( t$e
em&lo'ees (ile! ,it$ t$e C)C a claim (or &a'ment o( t$eir salaries
alleging t$at alt$o%g$ t$eir a&&ointments ,ere !eclare!
&ermanent b' G%lim Director ** o( t$e C)C Fiel! O((ice base! in
W%eBon !e -ama ,it$$el! t$e &a'ment o( t$eir salaries an!
bene(its &%rs%ant to O((ice Or!er No. 8CD51 ,$ic$ ,as iss%e! on
7%ne 15 188C ,$erein t$e a&&ointments o( t$e sai! 10 em&lo'ees
,ere recalle!. 2$e C)C (o%n! t$em entitle! to t$eir salaries. On
#&ril 15 188G t$e C)C !enie! !e -ama>s re.%est (or t$e recall o(
t$e a&&ointments o( t$e 10 em&lo'ees (or lac+ o( merit. 2$e C)C
also cite! -%le K )ections 8 an! 15 o( t$e Omnib%s -%les an!
!eclare! t$at t$e a&&ointments o( t$e sai! em&lo'ees ,ere iss%e!
in accor!ance ,it$ &ertinent la,s. 2$%s t$e same ,ere e((ective
imme!iatel' an! cannot be ,it$!ra,n or revo+e! b' t$e
a&&ointing a%t$orit' %ntil !isa&&rove! b' t$e C)C. 2$e C)C also
!ismisse! &etitioner>s allegation t$at t$ese ,ere Emi!nig$tF
a&&ointments &ointing o%t t$at t$e Constit%tional &rovision relie!
%&on b' &etitioner &ro$ibits onl' t$ose a&&ointments ma!e b' an
o%tgoing =resi!ent an! cannot be ma!e to a&&l' to local elective
o((icials. M- to C)C !enie!. C# a((irme!. M- !enie!.
*ss%e: 6ON !e -ama vali!l' recalle! t$e a&&ointments. NO.
2$e recor!s reveal t$at ,$en t$e &etitioner bro%g$t t$e
matter o( recalling t$e a&&ointments o( t$e 10 be(ore t$e
C)C t$e onl' reason $e cite! to 9%sti(' $is action ,as t$at
t$ese ,ere Emi!nig$t a&&ointmentsF t$at are (orbi!!en
%n!er #rticle K** )ection 1C o( t$e Constit%tion. Ho,ever
t$e C)C r%le! an! correctl' so t$at t$e sai! &ro$ibition
a&&lies onl' to &resi!ential a&&ointments. *n tr%t$ an! in
(act t$ere is no la, t$at &ro$ibits local elective o((icials
(rom ma+ing a&&ointments !%ring t$e last !a's o( $is or $er
ten%re. =etitioner certainl' !i! not raise t$e iss%e o( (ra%!
on t$e &art o( t$e o%tgoing ma'or ,$o ma!e t$e
a&&ointments. Neit$er !i! $e allege t$at t$e sai!
a&&ointments ,ere tainte! b' irreg%larities or anomalies
t$at breac$e! la,s an! reg%lations governing
/1C
a&&ointments. His solitar' reason (or recalling t$ese
a&&ointments ,as t$at t$e' ,ere to $is &ersonal belie(
Emi!nig$t a&&ointmentsF ,$ic$ t$e o%tgoing ma'or $a! no
a%t$orit' to ma+e.
2$e (o%rteen ;10< em&lo'ees ,ere !%l' a&&ointe! (ollo,ing
t,o meetings o( t$e =ersonnel )election Boar! $el! on Ma'
11 an! 7%ne /G 188C. 2$ere is no s$o,ing t$at an' o( t$e
&rivate res&on!ents ,ere not .%ali(ie! (or t$e &ositions t$e'
,ere a&&ointe! to. Moreover t$eir a&&ointments ,ere !%l'
atteste! to b' t$e Hea! o( t$e C)C (iel! o((ice at L%cena
Cit'. B' virt%e t$ereo( t$e' $a! alrea!' ass%me! t$eir
a&&ointive &ositions even be(ore &etitioner $imsel( ass%me!
$is electe! &osition as to,n ma'or. Conse.%entl' t$eir
a&&ointments too+ e((ect imme!iatel' an! cannot be
%nilaterall' revo+e! or recalle! b' &etitioner.
*t $as been $el! t$at %&on t$e iss%ance o( an a&&ointment
an! t$e a&&ointee>s ass%m&tion o( t$e &osition in t$e civil
service E$e ac.%ires a legal rig$t ,$ic$ cannot be ta+en
a,a' eit$er b' revocation o( t$e a&&ointment or b' removal
e4ce&t (or ca%se an! ,it$ &revio%s notice an! $earing.F
Moreover it is ,ellDsettle! t$at t$e &erson ass%ming a
&osition in t$e civil service %n!er a com&lete! a&&ointment
ac.%ires a legal not 9%st an e.%itable rig$t to t$e &osition.
2$is rig$t is &rotecte! not onl' b' stat%te b%t b' t$e
Constit%tion as ,ell ,$ic$ rig$t cannot be ta+en a,a' b'
eit$er revocation o( t$e a&&ointment or b' removal %nless
t$ere is vali! ca%se to !o so &rovi!e! t$at t$ere is &revio%s
notice an! $earing.
=etitioner a!mits t$at $is ver' (irst o((icial act %&on
ass%ming t$e &osition o( to,n ma'or ,as to iss%e O((ice
Or!er No. 8CD51 ,$ic$ recalle! t$e a&&ointments o( t$e
&rivate res&on!ents. 2$ere ,as no &revio%s notice m%c$
less a $earing accor!e! to t$e latter. Clearl' it ,as
&etitioner ,$o acte! in %n!%e $aste to remove t$e &rivate
res&on!ents ,it$o%t regar! (or t$e sim&le re.%irements o(
!%e &rocess o( la,. *n !oing so $e overste&&e! t$e bo%n!s
o( $is a%t$orit'. 6$ile $e arg%es t$at t$e a&&ointing &o,er
$as t$e sole a%t$orit' to revo+e sai! a&&ointments t$ere is
no !ebate t$at $e !oes not $ave blan+et a%t$orit' to !o so.
Neit$er can $e .%estion t$e C)C>s 9%ris!iction to a((irm or
revo+e t$e recall.
-%le K )ection 8 o( t$e Omnib%s *m&lementing -eg%lations
o( t$e -evise! #!ministrative Co!e s&eci(icall' &rovi!es t$at
Ean a&&ointment acce&te! b' t$e a&&ointee cannot be
,it$!ra,n or revo+e! b' t$e a&&ointing a%t$orit' an! s$all
remain in (orce an! in e((ect %ntil !isa&&rove! b' t$e
Commission.F 2$%s it is t$e C)C t$at is a%t$oriBe! to recall
an a&&ointment initiall' a&&rove! b%t onl' ,$en s%c$
a&&ointment an! a&&roval are &roven to be in !isregar! o(
a&&licable &rovisions o( t$e civil service la, an! reg%lations.
)ection 15 o( t$e same r%le &rovi!es: #n a&&ointment
iss%e! in accor!ance ,it$ &ertinent la,s an! r%les s$all ta+e
e((ect imme!iatel' %&on its iss%ance b' t$e a&&ointing
a%t$orit' an! i( t$e a&&ointee $as ass%me! t$e !%ties o(
t$e &osition $e s$all be entitle! to receive $is salar' at
once ,it$o%t a,aiting t$e a&&roval o( $is a&&ointment b'
t$e Commission. 2$e a&&ointment s$all remain e((ective
%ntil !isa&&rove! b' t$e Commission. *n no case s$all an
a&&ointment ta+e e((ect earlier t$an t$e !ate o( its iss%ance.
)ection /5 o( -%le K* also &rovi!es: Not,it$stan!ing t$e
initial a&&roval o( an a&&ointment t$e same ma' be
recalle! on an' o( t$e (ollo,ing gro%n!s:;a< NonDcom&liance
,it$ t$e &roce!%res?criteria &rovi!e! in t$e agenc'>s Merit
=romotion =lanA ;b< Fail%re to &ass t$ro%g$ t$e agenc'>s
)election?=romotion Boar!A ;c< Kiolation o( t$e e4isting
collective agreement bet,een management an! em&lo'ees
relative to &romotionA or ;!< Kiolation o( ot$er e4isting civil
service la, r%les an! reg%lations
2$e a&&ointments o( t$e &rivate res&on!ents ma' onl' be
recalle! on t$e aboveDcite! gro%n!s. #n! 'et t$e onl'
reason a!vance! b' t$e &etitioner to 9%sti(' t$e recall ,as
t$at t$ese ,ere Emi!nig$t a&&ointments.F 2$e C)C correctl'
r%le! $o,ever t$at t$e constit%tional &ro$ibition on soD
calle! Emi!nig$t a&&ointmentsF s&eci(icall' t$ose ma!e
,it$in t,o ;/< mont$s imme!iatel' &rior to t$e ne4t
&resi!ential elections a&&lies onl' to t$e =resi!ent or #cting
=resi!ent.
*( ever t$ere ,ere ot$er &roce!%ral or legal re.%irements
t$at ,ere violate! in im&lementing t$e a&&ointments o( t$e
&rivate res&on!ents t$e same ,ere not seasonabl' bro%g$t
be(ore t$e Civil )ervice Commission. 2$ese cannot be
raise! (or t$e (irst time on a&&eal.
/1G
*avi v. COM%L%C
Facts ;(irst case<: *n $is ca&acit' as baranga' c$airman o( Baranga'
77 Zone 7 Maloo+an Cit' an! as &resi!ent o( t$e Liga ng mga
Baranga' sa =ili&inas Davi! (ile! on December / 188G a &etition
(or &ro$ibition %n!er -%le GC o( t$e -%les o( Co%rt to &ro$ibit t$e
$ol!ing o( t$e baranga' election sc$e!%le! on t$e secon! Mon!a'
o( Ma' 1887. On 7an%ar' /8 1887 t$e )olicitor General (ile! $is
(o%rD&age Comment si!ing ,it$ &etitioner an! &ra'ing t$at Et$e
election sc$e!%le! on Ma' 1/ 1887 be $el! in abe'ance.F 2$e
COM3L3C (ile! a se&arate Comment !ate! Febr%ar' 1 1887
o&&osing t$e &etition. On Febr%ar' 11 1887 t$e Co%rt iss%e! a
-esol%tion giving !%e co%rse to t$e &etition an! re.%iring t$e
&arties to (ile sim%ltaneo%s memoran!a. *t also re.%este! (ormer
)enator #.%ilino W. =imentel 7r. to act as amic%s c%riae. *t note!
b%t !i! not grant &etitioner>s @rgent Motion (or *ss%ance o(
2em&orar' -estraining Or!er an!?or 6rit o( =reliminar' *n9%nction
!ate! 7an%ar' 11 1887 ;as ,ell as $is @rgent 34D=arte )econ!
Motion to t$e same e((ect !ate! Marc$ G 1887<. #ccor!ingl' t$e
&arties (ile! t$eir res&ective memoran!a. 2$e =etition (or Leave to
*ntervene (ile! on Marc$ 17 1887 b' =%nong Baranga' -o!son F.
Ma'or ,as !enie! as it ,o%l! 9%st %n!%l' !ela' t$e resol%tion o(
t$e case $is interest li+e t$ose o( all ot$er baranga' o((icials being
alrea!' a!e.%atel' re&resente! b' =etitioner Davi! ,$o (ile! t$is
&etition as E&resi!ent o( t$e Liga ng mga Baranga' sa =ili&inas.F
Facts ;secon! case<: On Febr%ar' /5 1887 =etitioner Liga ng mga
Baranga' W%eBon Cit' C$a&ter re&resente! b' its &resi!ent -illon
(ile! a &etition Eto see+ a 9%!icial revie, b' certiorari to !eclare as
%nconstit%tional: 1. )ection 01;c< o( -.#. 71G5 ,$ic$ rea!s as
(ollo,s: ;c< 2$e term o( o((ice o( baranga' o((icials an!
members o( t$e sangg%niang +abataan s$all be (or t$ree ;1< 'ears
,$ic$ s$all begin a(ter t$e reg%lar election o( baranga' o((icials on
t$e secon! Mon!a' o( Ma' 1880.>
/. COM3L3C -esol%tion Nos. /885 an! /887 (i4ing t$e !ate o(
t$e $ol!ing o( t$e baranga' elections on Ma' 1/ 1887 an! ot$er
activities relate! t$eretoA
1. 2$e b%!getar' a&&ro&riation o( =055 million containe! in
-e&%blic #ct No. 8/C5 ot$er,ise +no,n as t$e General
#&&ro&riations #ct o( 1887 inten!e! to !e(ra' t$e costs an!
e4&enses in $ol!ing t$e 1887 baranga' electionsAF Comelec
-esol%tion /885 &rom%lgate! on December /7 188G an! re(erre!
to above a!o&te! a ECalen!ar o( #ctivities an! List an! =erio!s o(
Certain =ro$ibite! #cts (or t$e Ma' 1/ 1887 Baranga' 3lections.F
On t$e ot$er $an! Comelec -esol%tion /887 &rom%lgate! on
Febr%ar' C 1887 move! certain !ates (i4e! in -esol%tion /885.
#cting on t$e &etition t$e Co%rt on Febr%ar' /C 1887 re.%ire!
res&on!ents to s%bmit t$eir comment t$ereon. 2$e Co%rt (%rt$er
resolve! to consoli!ate t$e t,o cases inasm%c$ as t$e' raise!
basicall' t$e same iss%e. -es&on!ent Commission (ile! its
Comment on Marc$ G 1887 an! t$e )olicitor General in
re&resentation o( t$e ot$er res&on!ent (ile! $is on Marc$ G 1887.
=etitioner>s @rgent Omnib%s Motion (or oral arg%ment an!
tem&orar' restraining or!er ,as note! b%t not grante!. 2$e
&etition ,as !eeme! s%bmitte! (or resol%tion b' t$e Co%rt ,it$o%t
nee! o( memoran!a.
*ss%es: 1. 6$ic$ la, governs t$e term o( o((ice o( baranga'
o((icials: -# 71G5 or -# GG78T 71G5.
-# 71G5 t$e LGC ,as enacte! later t$an -# GG78. *t is
basic t$at in case o( an irreconciliable con(lict bet,een t,o
la,s o( !i((erent vintages t$e later enactment &revails.
Legis &osteriores &riores contrarias abrogant. 2$e rationale
is sim&le: a later la, re&eals an earlier one beca%se it is t$e
later legislative ,ill. *t is to be &res%me! t$at t$e
la,ma+ers +ne, t$e ol!er la, an! inten!e! to c$ange it. *n
enacting t$e ol!er la, t$e legislators co%l! not $ave +no,n
t$e ne,er one an! $ence co%l! not $ave inten!e! to
c$ange ,$at t$e' !i! not +no,. @n!er t$e Civil Co!e la,s
are re&eale! onl' b' s%bse.%ent ones an! not t$e ot$er
,a' aro%n!. @n!er )ec. 01Dc o( -# 71G5 t$e term o( o((ice
o( baranga' o((icials ,as (i4e! at Et$ree ;1< 'ears ,$ic$
s$all begin a(ter t$e reg%lar election o( baranga' o((icials on
t$e secon! Mon!a' o( Ma' 1880.F 2$is &rovision is clearl'
inconsistent ,it$ an! re&%gnant to )ec. 1 o( -# GG78 ,$ic$
states t$at s%c$ Eterm s$all be (or (ive 'ears.F Note t$at
bot$ la,s re(er to t$e same o((icials ,$o ,ere electe! Eon
t$e secon! Mon!a' o( Ma' 1880.F
-# GG78 re.%ires t$e baranga' voters to elect seven
+aga,a!s an! t$e can!i!ate obtaining t$e $ig$est n%mber
o( votes s$all a%tomaticall' be t$e &%nong baranga'. -#
GGC1 em&o,ers t$e seven electe! baranga' +aga,a!s to
select t$e &%nong baranga' (rom among t$emselves. On
t$e ot$er $an! t$e Local #%tonom' Co!e man!ates a !irect
/17
vote on t$e baranga' c$airman b' t$e entire baranga'
electorate se&aratel' (rom t$e seven +aga,a!s. Hence
%n!er t$e Co!e voters elect eig$t baranga' o((icials
namel' t$e &%nong baranga' &l%s t$e seven +aga,a!s.
@n!er bot$ -# GG78 an! GGC1 t$e' vote (or onl' seven
+aga,a!s an! not (or t$e baranga' c$airman.
D%ring t$e baranga' elections $el! on Ma' 8 1880 ;secon!
Mon!a'< t$e voters act%all' an! !irectl' electe! one
&%nong baranga' an! seven +aga,a!s. *( ,e agree ,it$
t$e t$esis o( &etitioners it (ollo,s t$at all t$e &%nong
baranga's ,ere electe! illegall' an! t$%s =etitioner #le4
Davi! cannot claim to be a vali!l' electe! baranga'
c$airman m%c$ less &resi!ent o( t$e national leag%e o(
baranga's ,$ic$ $e &%r&orts to re&resent in t$is &etition. *t
t$en necessaril' (ollo,s also t$at $e is not t$e real &art'DinD
interest an! on t$at gro%n! $is &etition s$o%l! be
s%mmaril' !ismisse!.
*n enacting t$e general a&&ro&riations act o( 1887U11V
Congress a&&ro&riate! t$e amo%nt o( =055 million to cover
e4&enses (or t$e $ol!ing o( baranga' elections t$is 'ear.
Li+e,ise %n!er )ec. 7 o( -# 8188 Congress or!aine! t$at a
general registration o( voters s$all be $el! Eimme!iatel'
a(ter t$e baranga' elections in 1887.F 2$ese are clear an!
e4&ress contem&oraneo%s statements o( Congress t$at
baranga' o((icials s$all be electe! t$is Ma' in accor!ance
,it$ )ec. 01Dc o( -# 71G5.
*n =aras vs. ComelecU10V t$is Co%rt sai! t$at Et$e ne4t
reg%lar election involving t$e baranga' o((ice concerne! is
barel' seven ;7< mont$s a,a' t$e same $aving been
sc$e!%le! in Ma' 1887.F 2$is 9%!icial !ecision &er #rticle 8
o( t$e Civil Co!e is no, a E&art o( t$e legal s'stem o( t$e
=$ili&&ines.F
=etitioners &om&o%sl' claim t$at -# GG78 being a s&ecial
la, s$o%l! &revail over -# 71G5 an allege! general la,
&%rs%ant to t$e !octrine o( generalia s&ecialib%s non
!erogant. =etitioners are ,rong. -# 71G5 is a co!i(ie! set
o( la,s t$at s&eci(icall' a&&lies to local government %nits. *t
s&eci(icall' an! !e(initivel' &rovi!es in its )ec. 01Dc t$at
Et$e term o( o((ice o( baranga' o((icials s$all be (or t$ree
'ears.F *t is a s&ecial &rovision t$at a&&lies onl' to t$e term
o( baranga' o((icials ,$o ,ere electe! on t$e secon!
Mon!a' o( Ma' 1880. 6it$ s%c$ &artic%larit' t$e &rovision
cannot be !eeme! a general la,. =etitioner ma' be correct
in alleging t$at -# GG78 is a s&ecial la, b%t t$e' are
incorrect in stating ;,it$o%t $o,ever giving t$e reasons
t$ere(or< t$at -# 71G5 is necessaril' a general la,. *t is a
s&ecial la, inso(ar as it governs t$e term o( o((ice o(
baranga' o((icials. *n its re&ealing cla%se -# 71G5 states
t$at Eall general an! s&ecial la,s ,$ic$ are inconsistent
,it$ an' o( t$e &rovisions o( t$is Co!e are $ereb' re&eale!
or mo!i(ie! accor!ingl'.F 2$ere being a clear re&%gnance
an! incom&atibilit' bet,een t$e t,o s&eci(ic &rovisions
t$e' cannot stan! toget$er. 2$e later la, -# 71G5 s$o%l!
t$%s &revail in accor!ance ,it$ its re&ealing cla%se. 6$en a
s%bse.%ent la, encom&asses entirel' t$e s%b9ect matter o(
t$e (ormer enactments t$e latter is !eeme! re&eale!.
/. 6ON -# 71G5 inso(ar as it s$ortene! s%c$ term to onl' t$ree
'ears constit%tional. :3).
)3C. 8. 2$e term o( o((ice o( elective local o((icials e4ce&t
baranga' o((icials ,$ic$ s$all be !etermine! b' la, s$all
be t$ree 'ears an! no s%c$ o((icial s$all serve (or more
t$an t$ree consec%tive terms. Kol%ntar' ren%nciation o(
t$e o((ice (or an' lengt$ o( time s$all not be consi!ere! as
an interr%&tion in t$e contin%it' o( $is service (or t$e (%ll
term (or ,$ic$ $e ,as electe!.
=etitioner Liga ng mga Baranga' W%eBon Cit' C$a&ter
&osits t$at b' e4ce&ting baranga' o((icials ,$ose Eterm
s$all be !etermine! b' la,F (rom t$e general &rovision
(i4ing t$e term o( Eelective local o((icialsF at t$ree 'ears
t$e Constit%tion t$ereb' im&lie!l' &ro$ibits Congress (rom
legislating a t$reeD'ear term (or s%c$ o((icers. 6e (in! t$is
t$eor' rat$er novel b%t nonet$eless logicall' an! legall'
(la,e!.
@n!o%bte!l' t$e Constit%tion !i! not e4&ressl' &ro$ibit
Congress (rom (i4ing an' term o( o((ice (or baranga'
o((icials. *t merel' le(t t$e !etermination o( s%c$ term to
t$e la,ma+ing bo!' ,it$o%t an' s&eci(ic limitation or
&ro$ibition t$ereb' leaving to t$e la,ma+ers (%ll !iscretion
to (i4 s%c$ term in accor!ance ,it$ t$e e4igencies o( &%blic
service. *t m%st be remembere! t$at ever' la, $as in its
(avor t$e &res%m&tion o( constit%tionalit'. For a la, to be
n%lli(ie! it m%st be s$o,n t$at t$ere is a clear an!
%ne.%ivocal ;not 9%st im&lie!< breac$ o( t$e Constit%tion.
2o stri+e !o,n a la, as %nconstit%tional t$ere m%st be a
/18
clear an! %ne.%ivocal s$o,ing t$at ,$at t$e (%n!amental
la, &ro$ibits t$e stat%te &ermits. 2$e &etitioners $ave
miserabl' (aile! to !isc$arge t$is b%r!en an! to s$o,
clearl' t$e %nconstit%tionalit' t$e' aver.
2$ere is absol%tel' no !o%bt in o%r min! t$at )ec. 01Dc o(
-# 71G5 is constit%tional. )ec. 8 #rticle J o( t$e
Constit%tion DD limiting t$e term o( all elective local o((icials
to t$ree 'ears e4ce&t t$at o( baranga' o((icials ,$ic$
Es$all be !etermine! b' la,F DD ,as an amen!ment
&ro&ose! b' Constit%tional Commissioner Davi!e.
#ccor!ing to Fr. 7oa.%in G. Bernas ).7. t$e amen!ment
,as Erea!il' acce&te! ,it$o%t m%c$ !isc%ssion an!
(ormall' a&&rove!.F
1. 6ON &etitioners esto&&e! (rom claiming a term ot$er t$an t$at
&rovi!e! %n!er -# 71G5.
*( as claime! b' &etitioners t$e a&&licable la, is -# GG78
t$en ;1< =etitioner Davi! s$o%l! not $ave r%n an! co%l! not
$ave been electe! c$airman o( $is baranga' beca%se %n!er
-# GG78 t$ere ,as to be no !irect election (or t$e &%nong
baranga'A t$e +aga,a! can!i!ate ,$o obtaine! t$e $ig$est
n%mber o( votes ,as to be a%tomaticall' electe! baranga'
c$airmanA ;/< t$%s a&&l'ing sai! la, t$e &%nong baranga'
s$o%l! $ave been -%ben Magalona ,$o obtaine! t$e
$ig$est n%mber o( votes among t$e +aga,a!s DD 1C5 ,$ic$
,as m%c$ more t$an Davi!>s 11/A ;1< t$e electorate s$o%l!
$ave electe! onl' seven +aga,a!s an! not one &%nong
baranga' &l%s seven +aga,a!s.
*n ot$er ,or!s (ollo,ing &etitioners> o,n t$eor' t$e
election o( =etitioner Davi! as ,ell as all t$e baranga'
c$airmen o( t$e t,o Liga &etitioners ,as illegal.
2$e s%m total o( t$ese abs%r!ities in &etitioners> t$eor' is
t$at baranga' o((icials are esto&&e! (rom as+ing (or an'
term ot$er t$an t$at ,$ic$ t$e' ran (or an! ,ere electe! to
%n!er t$e la, governing t$eir ver' claim to s%c$ o((ices:
namel' -# 71G5 t$e LGC. =etitioners> belate! claim o(
ignorance as to ,$at la, governe! t$eir election to o((ice in
1880 is %nacce&table beca%se %n!er #rt. 1 o( t$e Civil Co!e
E;i<gnorance o( t$e la, e4c%ses no one (rom com&liance
t$ere,it$.F
Alinsug v. R'C
Facts: Zonsa'!a #lins%g ,as a reg%lar em&lo'ee o( t$e m%nici&al
government o( 3scalante Negros Occi!ental ,$en s$e receive! a
&ermanent a&&ointment as Cler+ *** in t$e o((ice o( t$e M%nici&al
=lanning an! Develo&ment Coor!inator o( t$e same m%nici&alit'.
On 15 7%ne 188/ s$e receive! an or!er (rom t$e ne,l' &roclaime!
ma'or =onsica !etailing $er to t$e O((ice o( t$e Ma'or. *n
com&liance ,it$ t$e or!er s$e re&orte! to sai! o((ice t$e (ollo,ing
!a'. On 18 7%ne 188/ Zonsa'!a absente! $ersel( (rom ,or+
allege!l' to atten! to (amil' matters. )$e $a! as+e! &ermission
(rom t$e &ersonnel o((icer b%t not (rom t$e ma'or. On /1 7%ne
188/ Ma'or =onsica iss%e! O((ice Or!er No. 11 s%s&en!ing
Zonsa'!a (or one mont$ an! one !a' commencing on /0 7%ne 188/
(or "a sim&le miscon!%ct . . . ,$ic$ can also be categoriBe! as an
act o( ins%bor!ination." 2$e or!er also state! t$at t$e s%s&ension
"carries ,it$ it (or(eit%re o( . . . bene(its s%c$ as . . . salar' an!
=3-# an! leave cre!its !%ring t$e !%ration o( its e((ectivit'."
Fort$,it$ Zonsa'!a (ile! ,it$ t$e -2C a &etition !ate! 57 7%l'
188/ (or "in9%nction ,it$ !amages an! &ra'er (or tem&orar'
restraining or!er an! &reliminar' in9%nction" against Ma'or =onsica
an! t$e m%nici&al treas%rer. 2$e &etitioner allege! t$at since $er
(amil' s%&&orte! Ma'or =onsicaHs rival in t$e 11 Ma' 188/
elections $er s%s&ension ,as an act o( "&olitical ven!etta". )$e
(%rt$er allege! t$at sai! res&on!entsH acts ,ere "malicio%s illegal
%n,arrante! ,rong(%l an! con!emnable." Ma'or =onsica an! t$e
m%nici&al treas%rer (ile! an ans,er to t$e &etition t$ro%g$ &rivate
&ractitioner LeBama alleging t$at t$e &etitioner $a! not e4$a%ste!
a!ministrative reme!ies an! t$at $er s%s&ension ,as in
accor!ance ,it$ la,. 2$e (oregoing elicite! a motion (rom t$e
&etitioner &ra'ing t$at t$e ans,er be !isregar!e! an! e4&%nge!
(rom t$e recor! an! t$at t$e res&on!ents be all !eclare! in !e(a%lt
on t$e gro%n! t$at since t$e res&on!ents ,ere s%e! in t$eir o((icial
ca&acities "not incl%!ing t$eir &rivate ca&acities" t$e' s$o%l!
$ave been re&resente! b' eit$er t$e m%nici&al legal o((icer or t$e
&rovincial legal o((icer or &rosec%tor as &rovi!e! (or b' )ec. 081 ;b<
UiV an! U1V o( t$e LGC. *t also cite! )ec. 1 o( -e&. #ct No. 15 an! #rt.
177 o( t$e -evise! =enal Co!e ,$ic$ &enaliBes %s%r&ation o( &%blic
a%t$orit'. 2$e res&on!ents o&&ose! t$e motion. Mani(esting t$at
t$e m%nici&alit' o( 3scalante $as no legal o((icer t$e' asserte!
t$at bot$ t$e LGC an! t$e #!ministrative Co!e o( 1887 !o not $ave
an' &rovision "relative to t$e !%t' o( an' &rovincial legal o((icer or
&rosec%tor to re&resent a m%nici&alit' or its o((icials in s%its (ile!
/18
against t$em b' an em&lo'ee or a &rivate in!ivi!%al." 2$e'
conten!e! t$at it ,as "%nnecessar' to &rovi!e s%c$ a &rovision
beca%se t$ere are a!ministrative an! 9%!icial r%lings s%staining t$e
vali!it' o( t$e em&lo'ment o( a &rivate co%nsel b' m%nici&al
o((icials. Moreover since t$e &etitioner &ra'e! (or t$e a,ar! o(
moral !amages" on t$e strengt$ o( t$is Co%rtHs r%ling in #lb%era v.
2orrens 1 t$eir $iring o( a &rivate co%nsel ,as 9%sti(ie!. On /8
#%g%st 188/ #ssistant =rovincial =rosec%tor Daniel M. Killa(lor
entere! $is a&&earance as "co%nsel (or -olan!o =. =onsica an!
=atricio #. #lvareB in t$eir o((icial ca&acities." 6it$ t$e (iling o( sai!
notice at a&&earance on 58 )e&tember 188/ t$e lo,er co%rt
iss%e! an Or!er !en'ing &etitioners motion to !eclare t$e
res&on!ents in !e(a%lt an! motion to e4&%nge (rom t$e recor!
res&on!entsH ans,er. #cting on t$e motion (or reconsi!eration (ile!
b' t$e &etitioner t$e lo,er co%rt iss%e! t$e Or!er o( 1G November
188/ !en'ing sai! motion on t$e t$esis t$at since t$e a&&ointment
o( a legal o((icer ,as o&tional on t$e &art o( t$e m%nici&al
government ;#rt. 081 t$ir! &aragra&$ LGC< an! t$e m%nici&alit'
o( 3scalante $a! not in (act !esignate! an' s%c$ legal o((icer
&etitionerHs move to !eclare res&on!ents in !e(a%lt "(or $aving
retaine! a &rivate co%nsel" ,as not t$ereb' legall' s%stainable.
*ss%es: 1. 6ON a &rivate co%nsel ma' re&resent m%nici&al o((icials
s%e! in t$eir o((icial ca&acities
)ec. 001 ;b< o( t$e LGC &rovi!es t$at in a!!ition to t$e
o((icials en%merate! in t$e (irst &aragra&$ t$ereo( t$e
ma'or ma' a&&oint among ot$er o((icials en%merate!
t$erein a m%nici&al legal o((icer. )ection 081 #rticle 11 o(
2itle K o( t$e Co!e ,$ic$ &rovi!es (or t$e a&&ointment o(
local o((icials common to all m%nici&alities cities an!
&rovinces states t$at ";t<$e a&&ointment o( a legal o((icer
s$all be man!ator' (or t$e &rovincial an! cit' governments
an! o&tional (or t$e m%nici&al government." 2$e same
section s&eci(ies t$e (%nctions o( t$e legal o((icer an! one
o( t$em being t$at $e s$all: ;i< -e&resent t$e local
government %nit in all civil actions an! s&ecial &rocee!ings
,$erein t$e local government %nit or an' o((icial t$ereo( in
$is o((icial ca&acit' is a &art': =rovi!e! t$at in actions or
&rocee!ings ,$ere a com&onent cit' or m%nici&alit' is a
&art' a!verse to t$e &rovincial government or to anot$er
com&onent cit' or m%nici&alit' a s&ecial legal o((icer ma'
be em&lo'e! to re&resent t$e a!verse &art'.
*n!ee! it a&&ears t$at t$e la, allo,s a &rivate co%nsel to
be $ire! b' a m%nici&alit' onl' ,$en t$e m%nici&alit' is an
a!verse &art' in a case involving t$e &rovincial government
or anot$er m%nici&alit' or cit' ,it$in t$e &rovince.
De G%ia v. 2$e #%!itor General: t$e m%nici&alit'Hs a%t$orit'
to em&lo' a &rivate attorne' is e4&ressl' limite! onl' to
sit%ations ,$ere t$e &rovincial (iscal ,o%l! be !is.%ali(ie! to
serve an! re&resent it. 6it$ )ec. 1G81 o( t$e ol!
#!ministrative Co!e as legal basis t$e Co%rt t$erein cite!
3nri.%eB )r. v. GimeneB ,$ic$ en%merate! instances ,$en
t$e &rovincial (iscal is !is.%ali(ie! to re&resent in co%rt a
&artic%lar m%nici&alit'A i( an! ,$en original 9%ris!iction o(
case involving t$e m%nici&alit' is veste! in t$e )%&reme
Co%rt ,$en t$e m%nici&alit' is a &art' a!verse to t$e
&rovincial government or to some ot$er m%nici&alit' in t$e
same &rovince an! ,$en in a case involving t$e
m%nici&alit' $e or $is ,i(e or c$il! is &ec%niaril' involve!
as $eir legatee cre!itor or ot$er,ise.
-amos v. Co%rt o( #&&eals: a m%nici&alit' ma' not be
re&resente! b' a &rivate la, (irm ,$ic$ $a! vol%nteere! its
services gratis in collaboration ,it$ t$e m%nici&al attorne'
an! t$e (iscal as s%c$ re&resentation ,as violative )ec.
1G81 o( t$e ol! #!ministrative Co!e. 2$is strict co$erence to
t$e letter o( t$e la, a&&ears to $ave been !ictate! b' t$e
(act t$at "t$e m%nici&alit' s$o%l! not be b%r!ene! ,it$
e4&enses o( $iring a &rivate la,'er" an! t$at "t$e interests
o( t$e m%nici&alit' ,o%l! be best &rotecte! i( a government
la,'er $an!les its litigations."
Ho,ever it can $a&&en t$at a government o((icial
ostensibl' acting in $is o((icial ca&acit' an! s%e! in t$at
ca&acit' is later $el! to $ave e4cee!e! $is a%t$orit'. On
t$e one $an! $is !e(ense ,o%l! $ave t$en been
%n!er,ritten b' t$e &eo&leHs mone' ,$ic$ or!inaril' s$o%l!
$ave been $is &ersonal e4&ense. On t$e ot$er $an!
&ersonal liabilit' can attac$ to $im ,it$o%t $o,ever $is
$aving $a! t$e bene(it o( assistance o( a co%nsel o( $is o,n
c$oice. *n Correa v. CF* o( B%lacan t$e Co%rt $el! t$at in t$e
!isc$arge o( governmental (%nctions "m%nici&al
cor&orations are res&onsible (or t$e acts o( its o((icers
e4ce&t i( an! ,$en t$e onl' to t$e e4tent t$at t$e' $ave
acte! b' a%t$orit' o( t$e la, an! in con(ormit' ,it$ t$e
//5
re.%irements t$ereo(." *n s%c$ instance t$is Co%rt $as
sanctione! t$at re&resentation b' &rivate co%nsel.
#lb%era v. 2orres: a &rovincial governor s%e! in $is o((icial
ca&acit' ma' engage t$e services o( &rivate co%nsel ,$en
"t$e com&laint contains ot$er allegations an! a &ra'er (or
moral !amages ,$ic$ i( !%e (rom t$e !e(en!ants m%st be
satis(ie! b' t$em in t$eir &rivate ca&acit'."
@rbano v. C$aveB: 2$e acc%se! &%blic o((icial s$o%l! not
e4&ect t$e )tate t$ro%g$ t$e O((ice o( t$e )olicitor General
to !e(en! $im (or a ,rong(%l act ,$ic$ cannot be attrib%te!
to t$e )tate itsel(. *n t$e same lig$t a &%blic o((icial ,$o is
s%e! in a criminal case is act%all' s%e! in $is &ersonal
ca&acit' inasm%c$ as $is &rinci&al t$e )tate can never be
t$e a%t$or o( a ,rong(%l act m%c$ less commit a crime.
2$e +e' t$en to resolving t$e iss%e o( ,$et$er a local
government o((icial ma' sec%re t$e services o( &rivate
co%nsel in an action (ile! against $im in $is o((icial ca&acit'
lies on t$e nat%re o( t$e action an! t$e relie( t$at is so%g$t.
*n t$is case t$e #lins%g claims moral an! e4em&lar'
!amages as ,ell as litigation e4&enses. Moral !amages
cannot generall' be a,ar!e! %nless t$e' are t$e &ro4imate
res%lt o( a ,rong(%l act or omission. 34em&lar' !amages on
t$e ot$er $an! are not a,ar!e! i( t$e !e(en!ant $a! not
acte! in a ,anton o&&ressive or malevolent manner nor in
t$e absence o( gross or rec+less negligence. # &%blic o((icial
,$o in t$e &er(ormance o( $is !%t' acts in s%c$ (as$ion
!oes so in e4cess o( a%t$orit' an! $is actions ,o%l! be
%ltra vires t$at can t$ereb' res%lt in an inc%rrence o(
&ersonal liabilit'.
Municipalit# o! Pililia v. CA
Facts: On Marc$ 17 1888 t$e -2C o( 2ana' -iBal Branc$ 85
ren!ere! 9%!gment in Civil Case No. 5C7D2 in (avor o( t$e
M%nici&alit' o( =ililla against ==C or!ering it to &a' b%siness ta4es
as ,ell as storage ma'or>s &ermit an! sanitar' ins&ection (ees.
2$e )C a((irme! ,it$ mo!i(ication ;1881 =ililia Case<. 2$is 9%!gment
became (inal an! e4ec%tor' on 7%l' 11 1881 an! t$e recor!s ,ere
reman!e! to t$e trial co%rt (or e4ec%tion. On October 10 1881 in
connection ,it$ t$e e4ec%tion o( sai! 9%!gment #tt'. Men!iola
(ile! a motion in be$al( o( &lainti(( m%nici&alit' (or t$e e4amination
o( !e(en!ant cor&orationHs gross sales (or t$e 'ears 187G to 1878
an! 1880 to 1881 (or t$e &%r&ose o( com&%ting t$e ta4 on b%siness
im&ose! %n!er t$e Local 2a4 Co!e as amen!e!. On October /1
1881 ==C (ile! a mani(estation to t$e e((ect t$at on October 18
1881 =ililla Ma'or Nicome!es =atenia receive! (rom it t$e s%m o(
=11M as (%ll satis(action o( t$e aboveDmentione! 9%!gment o( t$e
)%&reme Co%rt as evi!ence b' t$e release an! .%itclaim
!oc%ments e4ec%te! b' sai! ma'or. #ccor!ingl' on October 11
1881 t$e co%rt belo, iss%e! an or!er !en'ing &lainti((
m%nici&alit'Hs motion (or e4amination an! e4ec%tion o( 9%!gment
on t$e gro%n! t$at t$e 9%!gment in .%estion $a! alrea!' been
satis(ie!. 2$erea(ter on November /1 1881 #tt'. Men!iola (ile! a
motion (or reconsi!eration o( t$e co%rtHs a(oresai! or!er o( October
11 1881 claiming t$at t$e total liabilit' o( !e(en!ant cor&oration
to &lainti(( m%nici&alit' amo%nte! to =/0M ,$ile t$e amo%nt
involve! in t$e release an! .%itclaim e4ec%te! b' Ma'or =atenia
,as onl' =1/MA an! t$at t$e sai! ma'or co%l! not ,aive t$e
balance ,$ic$ re&resents t$e ta4es !%e %n!er t$e 9%!gment to t$e
m%nici&alit' an! over ,$ic$ 9%!gment t$e la, (irm o( #tt'.
Men!iola $a! registere! t,o liens (or allege! cons%ltanc' services
o( /CY an! attorne'sH (ees o( /CY ,$ic$ ,$en .%anti(ie! an!
a!!e! amo%nt to more t$an =1/ million. M- !enie!. On Febr%ar'
18 188/ #tt'. Men!iola again ostensibl' in be$al( o( $erein
&etitioner m%nici&alit' (ile! a &etition (or certiorari ,it$ %s ,$ic$
&etition ,e re(erre! to t$e Co%rt o( #&&eals (or &ro&er !is&osition.
On Marc$ / 188/ ==C (ile! a motion .%estioning #tt'. Men!iolaHs
a%t$orit' to re&resent &etitioner m%nici&alit'. Conse.%entl' on
Marc$ 11 188/ t$e C# !ismisse! t$e &etition (or $aving been (ile!
b' a &rivate co%nsel in violation o( la, an! 9%ris&r%!ence b%t
,it$o%t &re9%!ice to t$e (iling o( a similar &etition b' t$e
M%nici&alit' o( =ililla t$ro%g$ t$e &ro&er &rovincial or m%nici&al
legal o((icer. 2$e M%nici&alit' (ile! an M-.
*ss%e: 6ON #tt'. Men!oBa $as a%t$orit' to (ile a &etition in be$al(
o( an! in t$e name o( t$e M%nici&alit' o( =ililla. NO.
2$e matter o( re&resentation o( a m%nici&alit' b' a &rivate
attorne' $as been settle! in -amos vs. Co%rt o( #&&eals et
al. an! reiterate! in =rovince o( Ceb% vs. *nterme!iate
#&&ellate Co%rt et al. ,$ere ,e r%le! t$at &rivate
attorne's cannot re&resent a &rovince or m%nici&alit' in
la,s%its.
)ection 1G81 o( t$e -evise! #!ministrative Co!e &rovi!es:
2$e &rovincial (iscal s$all re&resent t$e &rovince an! an'
//1
m%nici&alit' or m%nici&al !istrict t$ereo( in an' co%rt
e4ce&t in cases ,$ereo( original 9%ris!iction is veste! in t$e
)%&reme Co%rt or in cases ,$ere t$e m%nici&alit' or
m%nici&al !istrict in .%estion is a &art' a!verse to t$e
&rovincial government or to some ot$er m%nici&alit' or
m%nici&al !istrict in t$e same &rovince. 6$en t$e interests
o( a &rovincial government an! o( an' &olitical !ivision
t$ereo( are o&&ose! t$e &rovincial (iscal s$all act on be$al(
o( t$e &rovince. 6$en t$e &rovincial (iscal is !is.%ali(ie! to
serve an' m%nici&alit' or ot$er &olitical s%b!ivision o( a
&rovince a s&ecial attorne' ma' be em&lo'e! b' its co%ncil.
@n!er t$e above &rovision com&lemente! b' )ection 1
-e&%blic #ct No. //G0 t$e Local #%tonom' La, onl' t$e
&rovincial (iscal an! t$e m%nici&al attorne' can re&resent a
&rovince or m%nici&alit' in t$eir la,s%its. 2$e &rovision is
man!ator'. 2$e m%nici&alit'Hs a%t$orit' to em&lo' a &rivate
la,'er is e4&ressl' limite! onl' to sit%ations ,$ere t$e
&rovincial (iscal is !is.%ali(ie! to re&resent it. For t$e
a(orementione! e4ce&tion to a&&l' t$e (act t$at t$e
&rovincial (iscal ,as !is.%ali(ie! to $an!le t$e m%nici&alit'Hs
case m%st a&&ear on recor!. *n t$e instant case t$ere is
not$ing in t$e recor!s to s$o, t$at t$e &rovincial (iscal is
!is.%ali(ie! to act as co%nsel (or t$e M%nici&alit' o( =ililla on
a&&eal $ence t$e a&&earance o( $erein &rivate co%nsel is
,it$o%t a%t$orit' o( la,.
2$e s%bmission o( #tt'. Men!iola t$at t$e e4ce&tion is broa!
eno%g$ to incl%!e sit%ations ,$erein t$e &rovincial (iscal
re(%ses to $an!le t$e case cannot be s%staine!. 2$e (iscalHs
re(%sal to re&resent t$e m%nici&alit' is not a legal
9%sti(ication (or em&lo'ing t$e services o( &rivate co%nsel.
@nli+e a &racticing la,'er ,$o $as t$e rig$t to !ecline
em&lo'ment a (iscal cannot re(%se to &er(orm $is (%nctions
on gro%n!s not &rovi!e! (or b' la, ,it$o%t violating $is
oat$ o( o((ice. *nstea! o( engaging t$e services o( a s&ecial
attorne' t$e m%nici&al co%ncil s$o%l! re.%est t$e )ecretar'
o( 7%stice to a&&oint an acting &rovincial (iscal in &lace o( t$e
&rovincial (iscal ,$o $as !ecline! to $an!le an! &rosec%te
its case in co%rt &%rs%ant to )ection 1G78 o( t$e -evise!
#!ministrative Co!e.
*t is also signi(icant t$at t$e lac+ o( a%t$orit' o( $erein
co%nsel #tt'. Men!iola ,as even raise! b' t$e m%nici&alit'
itsel( in its comment an! o&&osition to sai! co%nselHs motion
(or e4ec%tion o( $is lien ,$ic$ ,as (ile! ,it$ t$e co%rt a .%o
b' t$e o((ice o( t$e =rovincial =rosec%tor o( -iBal in be$al( o(
sai! m%nici&alit'.
2$e contention o( #tt'. Men!iola t$at &rivate res&on!ent
cannot raise (or t$e (irst time on a&&eal $is lac+ o( a%t$orit'
to re&resent t$e m%nici&alit' is %ntenable. 2$e legalit' o( $is
re&resentation can be .%estione! at an' stage o( t$e
&rocee!ings. *n t$e cases $ereinbe(ore cite! t$e iss%e o(
lac+ o( a%t$orit' o( &rivate co%nsel to re&resent a
m%nici&alit' ,as onl' raise! (or t$e (irst time in t$e
&rocee!ings (or t$e collection o( attorne'Hs (ees (or services
ren!ere! in t$e &artic%lar case a(ter t$e !ecision in t$at
case $a! become (inal an! e4ec%tor' an!?or $a! been !%l'
e4ec%te!.
F%rt$ermore even ass%ming t$at t$e re&resentation o( t$e
m%nici&alit' b' #tt'. Men!iola ,as !%l' a%t$oriBe! sai!
a%t$orit' is !eeme! to $ave been revo+e! b' t$e
m%nici&alit' ,$en t$e latter t$ro%g$ t$e m%nici&al ma'or
an! ,it$o%t sai! co%nselHs &artici&ation entere! into a
com&romise agreement ,it$ $erein &rivate res&on!ent ,it$
regar! to t$e e4ec%tion o( t$e 9%!gment in its (avor an!
t$erea(ter (ile! &ersonall' ,it$ t$e co%rt belo, t,o
&lea!ings entitle! an! constit%tive o( a ")atis(action o(
7%!gment" an! a "-elease an! W%itclaim".
# client b' a&&earing &ersonall' an! &resenting a motion
b' $imsel( is consi!ere! to $ave im&lie!l' !ismisse! $is
la,'er. Herein co%nsel cannot &reten! to be a%t$oriBe! to
contin%e re&resenting t$e m%nici&alit' since t$e latter is
entitle! to !is&ense ,it$ $is services at an' time. Bot$ at
common la, an! %n!er )ection /G -%le 118 o( t$e -%les o(
Co%rt a client ma' !ismiss $is la,'er at an' time or at an'
stage o( t$e &rocee!ings an! t$ere is not$ing to &revent a
litigant (rom a&&earing be(ore t$e co%rt to con!%ct $is o,n
litigation.
2$e client $as also an %n!o%bte! rig$t to com&romise a s%it
,it$o%t t$e intervention o( $is la,'er. 3ven t$e la,'ersH
rig$t to (ees (rom t$eir clients ma' not be invo+e! b' t$e
la,'ers t$emselves as a gro%n! (or !isa&&roving or $ol!ing
in abe'ance t$e a&&roval o( a com&romise agreement. 2$e
la,'ers concerne! can en(orce t$eir rig$ts in t$e &ro&er
co%rt in an a&&ro&riate &rocee!ing in accor!ance ,it$ t$e
///
-%les o( Co%rt b%t sai! rig$ts ma' not be %se! to &revent
t$e a&&roval o( t$e com&romise agreement.
2$e a&&re$ension o( $erein co%nsel t$at it is im&ossible t$at
t$e m%nici&alit' ,ill (ile a similar &etition consi!ering t$at
t$e ma'or ,$o controls its legislative bo!' ,ill not ta+e t$e
initiative is not onl' con9ect%ral b%t ,it$o%t (act%al basis.
Contrar' to $is &retensions t$ere is &resentl' a
mani(estation an! motion &en!ing ,it$ t$e trial co%rt (ile!
b' t$e a(oresai! m%nici&al ma'or (or t$e ,it$!ra,al o( t$e
")atis(action o( 7%!gment" an! t$e "-elease an! W%itclaim"
&revio%sl' (ile! in t$e case t$erein as earlier mentione!.
Ramos v. CA
Facts: On #&ril 18 1885 -amos =ereB Castillo an! t$e Bali%ag
Mar+et Ken!ors #ssociation *nc. (ile! a &etition be(ore t$e co%rt a
.%o (or t$e Declaration o( N%llit' o( M%nici&al Or!inances No. 81
;187G< an! No. 7 ;1885< an! t$e contract o( lease over a
commercial arca!e to be constr%cte! in t$e m%nici&alit' o( Bali%ag
B%lacan. On #&ril /7 1885 !%ring t$e $earing on t$e &etitionersH
motion (or t$e iss%ance o( &reliminar' in9%nction t$e =rovincial
Fiscal a&&eare! as co%nsel (or res&on!ent M%nici&alit' o( Bali%ag
,$ic$ o&&ose! t$e &etition. 6$ere%&on a ,rit o( &reliminar'
in9%nction ,as iss%e! b' t$e co%rt a .%o on Ma' 8 1885.
Mean,$ile on Ma' 1 1885 t$e =rovincial Fiscal an! t$e =rovincial
#ttorne' -egala!o (ile! an #ns,er on be$al( o( res&on!ent
m%nici&alit'. #t t$e &reDtrial con(erence sc$e!%le! on Ma' /8
1885 #tt'. -omanillos a&&eare! mani(esting t$at $e ,as co%nsel
(or res&on!ent m%nici&alit'. On t$e same !ate an! on 7%ne 1C
1885 res&ectivel' #tt'. -omanillos (ile! a motion to !issolve
in9%nction an! a motion to a!mit an #men!e! #ns,er ,it$ motion
to !ismiss. On 7%ne 18 1885 =rovincial #ttorne' -egala!o
a&&eare! as collaborating co%nsel o( #tt'. -omanillos. 2$e
=rovincial Fiscal !i! not a&&ear. *t ,as #tt'. -omanillos ,$o
s%bmitte! t$e -e&l' toD &etitionersH O&&osition to res&on!entsH
motion to !issolve in9%nction. *t ,as also #tt'. -omanillos ,$o
s%bmitte! a ,ritten (ormal o((er o( evi!ence on 7%l' 17 1885 (or
res&on!ent m%nici&alit'. D%ring t$e $earing on #%g%st 15 1885
&etitioners .%estione! t$e &ersonalit' o( #tt'. -omanillos to a&&ear
as co%nsel (or t$e res&on!ent m%nici&alit' ,$ic$ o&&osition ,as
reiterate! on #%g%st 1C 1885 an! ,as &%t in ,riting in &etitionersH
motion o( #%g%st /5 1885 to !is.%ali(' #tt'. -omanillos (rom
a&&earing as co%nsel (or res&on!ent m%nici&alit' an! to !eclare
n%ll an! voi! t$e &rocee!ings &artici&ate! in an! %n!erta+en b'
#tt'. -omanillos. Mean,$ile #tt'. -omanillos an! #tt'. -egala!o
(ile! a 9oint motion !ate! #%g%st // 1885 stating among ot$ers
t$at #tt'. -omanillos ,as ,it$!ra,ing as co%nsel (or res&on!ent
m%nici&alit' an! t$at #tt'. -egala!o as $is collaborating co%nsel
(or res&on!ent m%nici&alit' is a!o&ting t$e entire &rocee!ings
&artici&ate! in?%n!erta+en b' #tt'. -omanillos. On )e&tember 18
1885 res&on!ent 7%!ge iss%e! t$e Or!er no, being assaile! ,$ic$
as alrea!' state! !enie! &etitionersH motion to !is.%ali(' #tt'.
-omanillos as co%nsel (or res&on!ent m%nici&alit' an! to !eclare
n%ll an! voi! t$e &rocee!ings &artici&ate! in b' #tt'. -omanillosA
an! on t$e ot$er $an! grante! #tt'. -egala!oHs motion Hto (ormall'
a!o&t t$e entire &rocee!ings incl%!ing t$e (ormal o((er o(
evi!enceH. M- !enie!. C# !ismisse!. M- !enie!.
*ss%es: 1. 6ON a m%nici&alit' ma' be re&resente! in a s%it against
it b' a &rivate co%nsel.
M%nici&alit' o( =ililla -iBal vs. C#: &rivate attorne's cannot
re&resent a &rovince or m%nici&alit' in la,s%its. 2$e
m%nici&alit'Hs a%t$orit' to em&lo' a &rivate la,'er is
e4&ressl' limite! onl' to sit%ations ,$ere t$e &rovincial
(iscal is !is.%ali(ie! to re&resent it.
#lins%g v. -2C: 34ce&tions: t$e la, allo,s a &rivate co%nsel
to be $ire! b' a m%nici&alit' onl' ,$en t$e m%nici&alit' is
an a!verse &art' in a case involving t$e &rovincial
government or anot$er m%nici&alit' or cit' ,it$in t$e
&rovince. 2$is &rovision $as its a&&arent origin in t$e r%ling
in De G%ia v. 2$e #%!itor General ,$ere t$e Co%rt $el! t$at
t$e m%nici&alit'Hs a%t$orit' to em&lo' a &rivate attorne' is
e4&ressl' limite! onl' to sit%ations ,$ere t$e &rovincial
(iscal ,o%l! be !is.%ali(ie! to serve an! re&resent it. 6it$
)ec. 1G81 o( t$e ol! #!ministrative Co!e as legal basis t$e
Co%rt t$erein cite! 3nri.%eB )r. v. GimeneB ,$ic$
en%merate! instances ,$en t$e &rovincial (iscal is
!is.%ali(ie! to re&resent in co%rt a &artic%lar m%nici&alit'A i(
an! ,$en original 9%ris!iction o( case involving t$e
m%nici&alit' is veste! in t$e )%&reme Co%rt ,$en t$e
m%nici&alit' is a &art' a!verse to t$e &rovincial government
or to some ot$er m%nici&alit' in t$e same &rovince an!
,$en in a case involving t$e m%nici&alit' $e or $is ,i(e or
//1
c$il! is &ec%niaril' involve! as $eir legatee cre!itor or
ot$er,ise.
None o( t$e (oregoing e4ce&tions is &resent in t$is case. *t
ma' be sai! t$at #tt'. -omanillos a&&eare! (or res&on!ent
m%nici&alit' inasm%c$ as $e ,as alrea!' co%nsel o( Mristi
Cor&oration ,$ic$ ,as s%e! ,it$ res&on!ent m%nici&alit' in
t$is same case. 2$e or!er o( t$e trial co%rt !ate! )e&tember
18 1885 state! t$at #tt'. -omanillos "entere! $is
a&&earance as collaborating co%nsel o( t$e &rovincial
&rosec%tor an! t$e &rovincial attorne'." 2$is collaboration is
contrar' to la, an! $ence s$o%l! not $ave been recogniBe!
as legal. 2$e (act t$at t$e m%nici&al attorne' an! t$e (iscal
are s%&&ose! to collaborate ,it$ a &rivate la, (irm !oes not
legaliBe t$e latterHs re&resentation o( t$e m%nici&alit' o(
Hagono' in Civil Case No. C58CDM. 6$ile a &rivate
&rosec%tor is allo,e! in criminal cases an analogo%s
arrangement is not allo,e! in civil cases ,$erein a
m%nici&alit' is t$e &lainti((."
/. 6ON t$e &etitioners ma' be $el! in esto&&els
=etitioners cannot be $el! in esto&&el (or .%estioning t$e
legalit' o( t$e a&&earance o( #tt'. -omanillos
not,it$stan!ing t$at t$e' .%estione! t$e ,itnesses o(
res&on!ent m%nici&alit' !%ring t$e $earing o( its motion to
!issolve t$e &reliminar' in9%nction. M%nici&alit' o( =ililla
-iBal vs. Co%rt o( #&&eals $el! t$at t$e legalit' o( t$e
re&resentation o( an %na%t$oriBe! co%nsel ma' be raise! at
an' stage o( t$e &rocee!ings. 2$is Co%rt state! t$at: 2$e
legalit' o( $is re&resentation can be .%estione! at an' stage
o( t$e &rocee!ings. *n t$e cases $ereinbe(ore cite! t$e
iss%e o( lac+ o( a%t$orit' o( &rivate co%nsel to re&resent a
m%nici&alit' ,as onl' raise! (or t$e (irst time in t$e
&rocee!ings (or t$e collection o( attorne'Hs (ees (or services
ren!ere! in t$e &artic%lar case a(ter t$e !ecision in t$at
case $a! become (inal an! e4ec%tor' an!?or $a! been !%l'
e4ec%te!.
3lementar' (airness !ictates t$at &arties %na,are o( t$e
%na%t$oriBe! re&resentation s$o%l! not be $el! in esto&&el
9%st beca%se t$e' !i! not .%estion on t$e s&ot t$e a%t$orit'
o( t$e co%nsel (or t$e m%nici&alit'. 2$e r%le on a&&earances
o( a la,'er is t$at %ntil t$e contrar' is clearl' s$o,n an
attorne' is &res%me! to be acting %n!er a%t$orit' o( t$e
litigant ,$om $e &%r&orts to re&resent. His a%t$orit' to
a&&ear (or an! re&resent &etitioner in litigation not $aving
been .%estione! in t$e lo,er co%rt it ,ill be &res%me! on
a&&eal t$at co%nsel ,as &ro&erl' a%t$oriBe! to (ile t$e
com&laint an! a&&ear (or $is client.
/. 6ON t$e a!o&tion b' #tt'. -egala!o o( t$e &rocee!ings
&artici&ate! in b' #tt'. -omanillos vali!ate s%c$
&rocee!ings. :3).
*t !oes not a&&ear t$at t$e a!o&tion o( &rocee!ings
&artici&ate! in or %n!erta+en b' #tt'. -omanillos ,$en $e
,as &rivate co%nselS s%c$ as t$e &rocee!ings on t$e
motion to !issolve t$e in9%nction ,$erein &etitioners $a!
even crossDe4amine! t$e ,itnesses &resente! b' #tt'.
-omanillos in s%&&ort o( sai! motion an! $a! even starte!
to &resent t$eir ,itnesses to s%stain t$eir ob9ection to t$e
motion S ,o%l! $ave res%lte! in an' s%bstantial &re9%!ice
to &etitionersH interest. 2o !eclare t$e sai! &rocee!ings n%ll
an! voi! S not,it$stan!ing t$e (ormal a!o&tion t$ereo( b'
#tt'. -egala!o as =rovincial #ttorne' o( B%lacan ,$o is
a%t$oriBe! to re&resent res&on!ent m%nici&alit' o( Bali%ag
in co%rt S an! to re.%ire trial ane, to cover t$e same
s%b9ect matter to $ear t$e same ,itnesses an! to a!mit t$e
same evi!ence a!!%ce! b' t$e same &arties cannot
en$ance t$e &romotion o( 9%stice."
#lt$o%g$ a m%nici&alit' ma' not $ire a &rivate la,'er to
re&resent it in litigations in t$e interest o( s%bstantial
9%stice $o,ever ,e $ol! t$at a m%nici&alit' ma' a!o&t t$e
,or+ alrea!' &er(orme! in goo! (ait$ b' s%c$ &rivate
la,'er ,$ic$ ,or+ is bene(icial to it ;1< &rovi!e! t$at no
in9%stice is t$ereb' $ea&e! on t$e a!verse &art' an! ;/<
&rovi!e! (%rt$er t$at no com&ensation in an' g%ise is &ai!
t$ere(or b' sai! m%nici&alit' to t$e &rivate la,'er. @nless so
e4&ressl' a!o&te! t$e &rivate la,'erHs ,or+ cannot bin!
t$e m%nici&alit'.
/. 6ON "7oint Motion" Nee! Not Com&l' ,it$ -%le 1C.
# motion to ,it$!ra, t$e a&&earance o( an %na%t$oriBe!
la,'er is a nonDa!versarial motion t$at nee! not com&l'
,it$ )ection 0 o( -%le 1C as to notice to t$e a!verse &art'.
2$e !is.%ali(ication o( #tt'. -omanillos ,as ,$at &etitioners
,ere reall' &ra'ing (or ,$en t$e' .%estione! $is a%t$orit'
to a&&ear (or t$e m%nici&alit'. 2$e !is.%ali(ication ,as
grante! t$ereb' serving t$e relie( &ra'e! (or b' &etitioners.
//0
)%c$ being t$e case no "notice !irecte! to t$e &arties
concerne! an! serve! at least 1 !a's be(ore t$e $earing
t$ereo(" nee! be given &etitioners t$e .%estione! motion
not being contentio%s. Besi!es ,$at &etitioners ,ere
.%estioning as to lac+ o( a%t$orit' ,as reme!ie! b' t$e
a!o&tion o( &rocee!ings b' an a%t$oriBe! co%nsel #tt'.
-egala!o. 2$e action o( t$e trial co%rt allo,ing t$e motion o(
res&on!ent m%nici&alit' e((ectivel' grante! &etitionersH
motion to !is.%ali(' #tt'. -omanillos. *n =eo&le vs. Leviste
,e r%le! t$at: "6$ile it is tr%e t$at an' motion t$at !oes not
com&l' ,it$ t$e re.%irements o( -%le 1C s$o%l! not be
acce&te! (or (iling an! i( (ile! is not entitle! to 9%!icial
cogniBance t$is Co%rt $as li+e,ise $el! t$at ,$ere a rigi!
a&&lication o( t$e r%le ,ill res%lt in a mani(est (ail%re or
miscarriage o( 9%stice tec$nicalities ma' be !isregar!e! in
or!er to resolve t$e case. Litigations s$o%l! as m%c$ as
&ossible be !eci!e! on t$e merits an! not on tec$nicalities.
#s t$is Co%rt $el! in GalveB vs. Co%rt o( #&&eals ]an or!er
o( t$e co%rt granting t$e motion to !ismiss !es&ite t$e
absence o( a notice o( $earing or &roo( o( service t$ereo( is
merel' an irreg%larit' in t$e &rocee!ings cannot !e&rive a
com&etent co%rt o( 9%ris!iction over t$e Case."H
-%les o( &roce!%re are b%t tools !esigne! to (acilitate t$e
attainment o( 9%stice s%c$ t$at ,$en rigi! a&&lication o( t$e
r%les ten! to (r%strate rat$er t$an &romote s%bstantial
9%stice t$is Co%rt is em&o,ere! to s%s&en! t$eir o&eration.
(alalima v. Guingona
Facts: )ometime in 1881 several a!ministrative com&laints against
t$e &etitioners ,$o ,ere elective o((icials o( t$e =rovince o( #lba'
,ere (ile! ,it$ t$e O((ice o( t$e =resi!ent. #cting t$ereon t$e
=resi!ent iss%e! #O 80 creating an #! Hoc Committee to
investigate t$e c$arges an! to t$erea(ter s%bmit its (in!ings an!
recommen!ations. 2$e #! Hoc committee ,as com&ose! o(
@n!ersecretar' Kictor -. )%m%long o( t$e De&artment o( t$e
*nterior an! Local Government ;D*LG< #ssistant 34ec%tive
)ecretar' -enato C. Corona an! =resi!ential #ssistant #ngel K.
)al!ivar. On /G #%g%st 1880 a(ter con!%cting $earings t$e #! Hoc
Committee s%bmitte! its re&ort to t$e O((ice o( t$e =resi!ent. On 7
October 1880 t$e =resi!ent &rom%lgate! #O. 1C1 ,$ic$ mete! o%t
s%s&ensions to t$e &etitioners.
O= Case C0G8:
Beca%se o( t$e re(%sal b' t$e N=C to &a' real &ro&ert' ta4es
assesse! b' #lba' covering t$e &erio! (rom 11 7%ne 1880 %& to 15
Marc$ 1887 amo%nting to =/1080C180.7G t$e =rovince sol! at
&%blic a%ction t$e &ro&erties o( N=C consisting o( geot$ermal
&o,er &lants b%il!ings mac$iner' an! ot$er im&rovements
locate! at 2i,i an! Daraga #lba'. 2$e =rovince ,as t$e sole an!
,inning bi!!er at t$e a%ction sale. N=C (aile! to re!eem its
&ro&erties. *t later (ile! a &etition ,it$ t$e )%&reme Co%rt
.%estioning t$e vali!it' o( t$e a%ction sale con!%cte! b' t$e
=rovince. N=C claims inter alia t$at its &ro&erties are not s%b9ect
to real &ro&ert' ta4. On 17 Ma' 1888 t$e =rovince t$ro%g$ #tt'.
-om%lo -ica(ort t$e legal o((icer o( t$e =rovince (ile! itA comment
on t$e N=C &etition ,it$ t$e )%&reme Co%rt. On / 7%ne 1888 t$e
#lba' )angg%niang =anlala,igan a!o&te! -esol%tion No. 1/8D88
a%t$oriBing res&on!ent Governor to engage t$e services o( a
ManilaDbase! la, (irm to $an!le t$e case against N=C. On /C
#%g%st 1888 #tt'. 7es%s -. Cornago entere! $is a&&earance ,it$
t$e )%&reme Co%rt as collaborating co%nsel (or t$e =rovince in G.-.
No. 87078. 2$e entr' o( a&&earance o( #tt'. Cornago bore t$e
con(ormit' o( res&on!ent Governor. On 10 November 1888 #tt'.
#ntonio 7ose F. Cortes o( t$e Cortes P -e'na La, Firm sent
res&on!ent Governor a letter in(orming $im t$at #tt'. 7es%s -.
Cornago as collaborating co%nsel (or t$e =rovince $as (ile! a
memoran!%m ,it$ t$e )%&reme Co%rt s%ggesting t$at a retainer
agreement be signe! bet,een t$e =rovince on t$e one $an! an!
#tt'. Cornago an! Cortes P -e'na La, Firm. On 8 7an%ar' 1885
t$e #lba' )angg%niang =anlala,igan &asse! -esol%tion No. 51D85
a%t$oriBing res&on!ent Governor to sign an! con(irm t$e retainer
contract ,it$ t$e Cortes P -e'na La, Firm. )alalima signe! t$e
retainer agreement. On 0 7%ne 1885 t$e )%&reme Co%rt iss%e! a
!ecision !ismissing t$e N=C &etition an! %&$ol!ing t$e vali!it' o(
t$e a%ction sale con!%cte! b' t$e &rovince to ans,er (or N=CHs ta4
liabilities. =a'ments amo%nting to =7185015.11 ,ere ma!e b' t$e
=rovince to #tt'. #ntonio 7ose Cortes an! #tt'. 7es%s -. Cornago.
*ss%e: 6ON res&on!ents $ave inc%rre! a!ministrative liabilit' in
entering into t$e retainer agreement ,it$ #tt'. Cornago an! t$e
Cortes P -e'na La, Firm an! in ma+ing &a'ments &%rs%ant to sai!
agreement (or &%r&oses o( t$e case (ile! b' N=C ,it$ t$e )%&reme
Co%rt against t$e &rovince. :3).
//C
)ec. 081 o( t$e LGC ;-#. No. 71G5< re.%ires t$e
a&&ointment o( a legal o((icer (or t$e &rovince ,$ose
(%nctions incl%!e t$e (ollo,ing: -e&resent t$e local
government %nit in all civil actions an! s&ecial &rocee!ings
,$erein t$e local government %nit or an' o((icial t$ereo( in
$is o((icial ca&acit' is a &art'A =rovi!e! 2$at in actions or
&rocee!ing ,$ere a com&onent cit' or m%nici&alit' is a
&art' a!verse to t$e &rovincial government or to anot$er
com&onent cit' or m%nici&alit' a s&ecial legal o((icer ma'
be em&lo'e! to re&resent t$e a!verse &art'.
M%nici&alit' o( Boca%e et al. v. Manoto+: LG@s cannot be
re&resente! b' &rivate la,'ers an! it is solel' t$e =rovincial
Fiscal ,$o can rig$t(%ll' re&resent t$em. @n!er t$e la, t$e
=rovincial Fiscal o( B%lacan an! $is assistants are c$arge!
,it$ t$e !%t' to re&resent t$e &rovince an! an' m%nici&alit'
t$ereo( in all civil actions.
2$is r%ling a&&lies s.%arel' to t$e case at $an! beca%se
)ec. 081 o( t$e LGC is base! on )ec. 1G81 o( t$e -evise!
#!ministrative Co!e ,$ic$ ,as t$e s%b9ect o( inter&retation
in t$e abovecite! case.
*n $iring &rivate la,'ers to re&resent t$e =rovince o( #lba'
res&on!ents e4cee!e! t$eir a%t$orit' an! violate! t$e
above.%ote! section o( t$e LGC an! t$e !octrine lai! !o,n
b' t$e )%&reme Co%rt.
Moreover t$e entire transaction ,as atten!e! b'
irreg%larities. First t$e !isb%rsements to t$e la,'ers
amo%nting to =7185015.11 ,ere !isallo,e! b' t$e
=rovincial #%!itor on t$e gro%n! t$at t$ese ,ere ma!e
,it$o%t t$e &rior ,ritten con(ormit' o( t$e )olicitor General
an! t$e ,ritten conc%rrence o( t$e Commission on #%!it
;CO#< as re.%ire! b' CO# Circ%lar No. 8GD/CC !ate! / #&ril
188G.
2$e res&on!ents attem&te! to !is&%te t$is (in!ing b'
&resenting t$e )olicitor GeneralHs con(ormit' !ate! 1C 7%l'
1881. 2$is con(ormit' ,as $o,ever obtaine! a(ter t$e
!isb%rsements ,ere alrea!' ma!e in 1885 an! 188/. 6$at
is re.%ire! b' CO# Circ%lar No. 8CD/CC is a &rior ,ritten
con(ormit' an! ac.%iescence o( t$e )olicitor General.
#not$er irreg%larit' in t$e transaction concerns t$e la,'ers.
-esol%tion No. 51D85 a%t$oriBe! t$e res&on!ent Governor to
sign an! con(irm a retainer contract (or legal services ,it$
t$e Cortes P -e'na La, Firm at /5/ 3. -o!rig%eB )r. Blv!.
W%eBon Cit'. 2$e retainer contract signe! b' res&on!ent
Governor ,as $o,ever not onl' ,it$ t$e Cortes P -e'na
La, Firm b%t also ,it$ #tt'. 7es%s -. Cornago o( 7amecca
B%il!ing /85 2omas Morato #ven%e W%eBon Cit'. *n
entering into a retainer agreement not onl' ,it$ t$e Cortes
P -e'na La, Firm b%t also ,it$ #tt'. 7ose -. Cornago
res&on!ent Governor e4cee!e! $is a%t$orit' %n!er
-esol%tion No. 51D85.
Com&licating (%rt$er t$e ,eb o( !ece&tion s%rro%n!ing t$e
transaction is t$e (act t$at it ,as onl' #tt'. Cornago ,$o
a&&eare! as collaborating co%nsel o( recor! o( t$e =rovince
in t$e )%&reme Co%rt case ;G -. No. 87078<. 3ven t$e
)olicitor General in $is letter to res&on!ent Governor !ate!
1C 7%l' 1881 note! t$at t$e =rovince is re&resente! in t$e
)%&reme Co%rt b' #tt's. -ica(ort Cornago an! Glenn
Mana$an b%t not b' t$e Cortes P -e'na La, Firm.
F%rt$ermore t$e memoran!%m ,it$ t$e )%&reme Co%rt
(ile! (or t$e =rovince ,as signe! b' #tt'. Cornago an! not
b' t$e Cortes P -e'na La, Firm. Conse.%entl' t$e Cortes
P -e'na La, Firm ,as not co%nsel o( recor! o( t$e =rovince
in G.-. No. 87078. #n! 'et si4 o( t$e ten c$ec+s &ai! b' t$e
=rovince an! amo%nting to more t$an =1.G million ,ere
iss%e! in (avor o( t$e Cortes P -e'na La, Firm t$ro%g$ #tt'.
#ntonio 7ose Cortes. *n ot$er ,or!s res&on!ents !isb%rse!
mone' to t$e Cortes P -e'na La, Firm alt$o%g$ t$e latter
!i! not a&&ear as co%nsel (or t$e =rovince in t$e )%&reme
Co%rt in G.-. No. 87078.
Finall' t$e attorne'Hs (ees agree! %&on b' res&on!ent
)alalima an! con(irme! b' t$e ot$er res&on!ents are not
onl' %nreasonable b%t also %nconscionable. 2$e contingent
(ee o( 18Y o( t$e "=/10 million" claim o( t$e =rovince
against N=C amo%nts to =18.C million. 2$e ,or!
"%nconscionable" as a&&lie! to attorne'Hs (ee "means
not$ing more t$an t$at t$e (ee contracte! (or stan!ing
alone an! %ne4&laine! ,o%l! be s%((icient to s$o, t$at an
%n(air a!vantage $a! been ta+en o( t$e client or t$at a
legal (ra%! $a! been ta+en o( t$e client or t$at a legal (ra%!
$a! been &er&etrate! on $im."
2$e =rovince $as a legal o((icer #tt'. -ica(ort ,$o $a!
alrea!' (ile! a comment on N=CHs &etition against t$e
=rovince. 2$e comment (ile! b' #tt'. -ica(ort alrea!' covers
t$e basic iss%es raise! in t$e &etition. 6$en #tt'. Cornago
//G
(ile! an a&&earance an! s%bse.%entl' a memoran!%m (or
t$e =rovince t$e &etition ,as alrea!' been given !%e
co%rse b' t$e )%&reme Co%rt an! t$e onl' &lea!ing to be
(ile! b' t$e &arties be(ore t$e Co%rt ,o%l! iss%e its !ecision
,as a memoran!%m. )%rel' one memoran!%m co%l! not be
,ort$ =18.C million.
F%rt$ermore t$e &ro(essional c$aracter an! social stan!ing
o( #tt'. Cornago are not s%c$ as ,o%l! merit a =18.C million
(ee (or t$e legal services ren!ere! (or t$e =rovince. D%ring
t$e $earing res&on!ent Governor a!mitte! t$at $e $a!
$ire! #tt'. Cornago beca%se t$e' ,ere sc$oolmates at )an
Be!a College. *t is evi!ent t$at res&on!ent Governor $ire!
#tt'. Cornago not on t$e basis o( $is com&etenc' an!
stan!ing in t$e legal comm%nit' b%t &%rel' (or &ersonal
reasons. Li+e,ise t$e stan!ing o( t$e Cortes P -e'na La,
Firm is not s%c$ as ,o%l! merit =18.C million (or one
memoran!%m ,$ic$ in t$is case it $a! not even (ile!
beca%se it ,as not t$e co%nsel o( recor!. Hence consi!ering
t$e labor an! time involve! t$e s+ill an! e4&erience calle!
(or in t$e &er(ormance o( t$e services an! t$e &ro(essional
c$aracter an! social stan!ing o( t$e la,'ers t$e attorne'Hs
(ee o( =18.C million is %nconscionable. B' allo,ing s%c$
scan!alo%sl' e4orbitant attorne'Hs (ees ,$ic$ is &atentl'
!isa!vantageo%s to t$e government res&on!ents betra'e!
a &ersonal bias to t$e la,'ers involve! an! committe!
ab%se o( a%t$orit'.
*ss%es: 1. 6ON t$e O= acte! ,it$ grave ab%se o( !iscretion in
s%s&en!ing &etitioners (or &erio!s ranging (rom 1/D/5 mont$s.
)ec. GG;b< 2$e &enalt' o( s%s&ension s$all not e4cee! t$e
%ne4&ire! term o( t$e res&on!ent or a &erio! o( si4 ;G<
mont$s (or ever' a!ministrative o((ense nor s$all sai!
&enalt' be a bar to t$e can!i!ac' o( t$e res&on!ent so
s%s&en!e! as long as $e meet t$e .%ali(ications (or t$e
o((ice.
2$is &rovision sets t$e limits to t$e &enalt' o( s%s&ension. *t
s$o%l! not e4cee! si4 mont$s or t$e %ne4&ire! &ortion o(
t$e term o( o((ice o( t$e res&on!ent (or ever' a!ministrative
o((ense. #n a!ministrative o((ense means ever' act or
con!%ct or omission ,$ic$ amo%nts to or constit%tes ever'
o( t$e gro%n!s or !isci&linar' action.
2$e o((enses (or ,$ic$ s%s&ension ma' be im&ose! are
en%merate! in )ection G5 o( t$e Co!e ,$ic$ rea!s: )ec. G5.
#n elective local o((icial ma' be !isci&line! s%s&en!e! or
remove! (rom o((ice on an' o( t$e (ollo,ing gro%n!s: ;a<
Dislo'alt' to t$e -e&%blic o( t$e =$ili&&inesA ;b< C%l&able
violation o( t$e Constit%tionA ;c< Dis$onest' o&&ression
miscon!%ct in o((ice gross negligence or !ereliction o(
!%t'A ;!< Commission o( an' o((ense involving moral
t%r&it%!e or an o((ense &%nis$able b' at Least &rision
ma'orA ;e< #b%se o( a%t$orit'A ;(< @na%t$oriBe! absence (or
(i(teen ;1C< consec%tive ,or+ing !a's e4ce&t in t$e case o(
members o( t$e sangg%niang &anlala,igan sangg%niang
&anl%ngso! sangg%niang ba'an an! sangg%niang
baranga'A ;g< #c.%isition (or or ac.%isition o( (oreign
citiBens$i& or resi!ence or t$e stat%s o( an immigrant o(
anot$er co%ntr'A an! ;$< )%c$ ot$er gro%n!s as ma' be
&rovi!e! in t$is Co!e an! ot$er la,s. #n elective local
o((icial ma' be remove! (rom o((ice on t$e gro%n!s
en%merate! above b' or!er o( t$e &ro&er co%rt.
#ss%ming t$en t$at t$e (in!ings an! concl%sions o( t$e
O((ice o( t$e =resi!ent in eac$ o( t$e s%b9ect (o%r
a!ministrative cases are correct it committe! no grave
ab%se o( !iscretion in im&osing t$e &enalt' o( s%s&ension
alt$o%g$ t$e aggregate t$ereo( e4cee!e! si4 mont$s an!
t$e %ne4&ire! &ortion o( t$e &etitionersH term o( o((ice. 2$e
(act remains t$at t$e s%s&ension im&ose! (or eac$
a!ministrative o((ense !i! not e4cee! si4 mont$s an! t$ere
,as an e4&ress &rovision t$at t$e s%ccessive service o( t$e
s%s&ension s$o%l! not e4cee! t$e %ne4&ire! &ortion o( t$e
term o( o((ice o( t$e &etitioners. 2$eir term o( o((ice e4&ire!
at noon o( 15 7%ne 188C. #n! t$is Co%rt is not &re&are! to
r%le t$at t$e s%s&ension to t$e &etitionersH removal o((ice.
/. 6ON t$e O= committe! grave ab%se o( !iscretion in
s%s&en!ing )alalima ,$o ,as reelecte! on 11 Ma' 188/
(or an allege! a!ministrative o((ense committe! !%ring $is
(irst termA an! in s%s&en!ing in t$e ot$er &etitioners some
o( ,$om ,ere electe! an! ot$ers reelecte! on 11 Ma' 188/
(or an allege! a!ministrative o((ense committe! in 1888
6e agree ,it$ t$e &etitioners t$at Governor )alalima co%l!
no longer be $el! a!ministrativel' liable in C.=. Case No.
C0C5 in connection ,it$ t$e negotiate! contract entere!
into on G Marc$ 188/ ,it$ -:@ Constr%ction (or a!!itional
//7
re$abilitation ,or+ at t$e 2abaco =%blic Mar+et. Nor co%l!
t$e &etitioners be $el! a!ministrativel' liable in O.=. Case
No. C0G8 (or t$e e4ec%tion in November 1888 o( t$e retainer
contract ,it$ #tt'. 7es%s Cornago an! t$e CorteHs an! -e'na
La, Firm. 2$is is so beca%se &%blic o((icials cannot be
s%b9ect to !isci&linar' action (or a!ministrative miscon!%ct
committe! !%ring a &rior term as $el! in =asc%al vs.
=rovincial Boar! o( N%eva 3ci9a 17 an! #g%inal!o vs. )antos.
18 *n =asc%al t$is Co%rt r%le!: 6e no, come to one main
iss%e o( t$e controvers' S t$e legalit' o( !isci&lining an
elective m%nici&al o((icial (or a ,rong(%l act committe! b'
$im !%ring $is imme!iatel' &rece!ing term o( o((ice. *n t$e
absence o( an' &rece!ent in t$is 9%ris!iction ,e $ave
resorte! to #merican a%t$orities. 6e (o%n! t$at cases on
t$e matter are con(licting !%e in &art &robabl' to
!i((erences in stat%tes an! constit%tional &rovisions an!
also in &art to a !ivergence o( vie,s ,it$ res&ect to t$e
.%estion o( ,$et$er t$e s%bse.%ent election or a&&ointment
con!ones t$e &rior miscon!%ct. 2$e ,eig$t o( a%t$orit'
$o,ever seems to incline to t$e r%le !en'ing t$e rig$t to
remove one (rom o((ice beca%se o( miscon!%ct !%ring a
&rior term to ,$ic$ ,e (%ll' s%bscribe. O((enses committe!
or acts !one !%ring &revio%s term are generall' $el! not to
(%rnis$ ca%se (or removal an! t$is is es&eciall' tr%e ,$ere
t$e constit%tion &rovi!es t$at t$e &enalt' in &rocee!ings (or
removal s$all not e4ten! be'on! t$e removal (rom o((ice
an! !is.%ali(ication (rom $ol!ing o((ice (or t$e term (or
,$ic$ t$e o((ice ,as electe! or a&&ointe!. ;G7 C.7.). &. /08
citing -ice vs. )tate 1G1 ).6. /!. 051A Montgomer' vs.
No,ell 05 ) 6. /! 018A =eo&le e4 rel. Bags$a, vs.
2$om&son 115 =. /! /17A Boar! o( ComHrs o( Ming(is$er
Co%nt' vs. )$%tler /81 =. ///A )tate vs. Bla+e /85 =. 188A
*n re F%!%la 107 #. G7A )tate vs. 6ar! 01 ).K. /!. /17<.
2$e %n!erl'ing t$eor' is t$at eac$ term is se&arate (rom
ot$er terms an! t$at t$e reelection to o((ice o&erates as a
con!onation o( t$e o((icerHs &revio%s miscon!%ct to t$e
e4tent o( c%tting o(( t$e rig$t to remove $im t$ere(or ;01
#m. 7%r. &. 0C citing #tt'. Gen. vs. Hast' 180 #la. 1/1 G1
)o. CC8 C5 L.-.#.. ;N)< CC1. #s $el! on Conant vs. Brogan
;1887< G N.:.).-. 11/ cite! in 17 #.*.-. /81 G1 )o. CC8 C5
L-# ;N)< CC1 S2$e Co%rt s$o%l! never remove a &%blic
o((icer (or acts !one &rior to $is &resent term o( o((ice. 2o !o
ot$er,ise ,o%l! be to !e&rive t$e &eo&le o( t$eir rig$t to
o((ice it m%st be ass%me! t$at t$e' !i! t$is ,it$ +no,le!ge
o( $is li(e an! c$aracter an! t$at t$e' !isregar!e! or
(orgave $is (a%lts or miscon!%ct i( $e $a! been g%ilt' o(
an'. *t is not (or t$e co%rt b' reason o( s%c$ (a%lts or
miscon!%ct to &racticall' overr%le t$e ,ill o( t$e &eo&le.
2$is Co%rt reiterate! t$is r%le in #g%inal!o an! e4&licitl'
state! t$erein: Clearl' t$en t$e r%le is t$at a &%blic o((icial
can not be remove! (or a!ministrative miscon!%ct
committe! !%ring a &rior term since $is reDelection to o((ice
o&erates a con!onation o( t$e o((icerHs &revio%s miscon!%ct
to t$e e4tent o( c%tting o(( t$e rig$t to remove $im t$ere(or.
2$e (oregoing r%le $o,ever (in!s no a&&lication to criminal
cases &en!ing against &etitioners (or acts $e ma' $ave
committe! !%ring t$e (aile! co%&.
Ho,ever t$e O((ice o( t$e )olicitor General maintains t$at
#g%inal!o !oes not a&&l' beca%se t$e case against t$e
o((icial t$erein ,as alrea!' &en!ing ,$en $e (ile! $is
certi(icate o( can!i!ac' (or $is reelection bi!. *t is o( t$e
vie, t$at an o((icialHs reelection ren!ers moot an! aca!emic
an a!ministrative com&laint against $im (or acts !one
!%ring $is &revio%s term onl' i( t$e com&laint ,as (ile!
be(ore $is reelection. 2$e (ine !istinction !oes not im&ress
%s. 2$e r%le ma+es no !istinction. #s a matter o( (act in
=asc%al t$e a!ministrative com&laint against =asc%al (or
acts committe! !%ring $is (irst term as Ma'or o( )an 7ose
N%eva 3ci9a ,as (ile! onl' a 'ear a(ter $e ,as reelecte!.
2$e r%le a!o&te! in =asc%al .%ali(ie! in #g%inal!o inso(ar
as criminal cases are concerne! is still a goo! la,. )%c$ a
r%le is not onl' (o%n!e! on t$e t$eor' t$at an o((icialHs
reelection e4&resses t$e sovereign ,ill o( t$e electorate to
(orgive or con!one an' act or omission constit%ting a
gro%n! (or a!ministrative !isci&line ,$ic$ ,as committe!
!%ring $is &revio%s term. 6e ma' a!! t$at so%n! &%blic
&olic' !ictates it. 2o r%le ot$er,ise ,o%l! o&en t$e
(loo!gates to e4acerbating en!less &artisan contests
bet,een t$e reelecte! o((icial an! $is &olitical enemies ,$o
ma' not sto& to $o%n! t$e (ormer !%ring $is ne, term ,it$
a!ministrative cases (or acts allege! to $ave been
committe! !%ring $is &revio%s term. His secon! term ma'
t$%s be !evote! to !e(en!ing $imsel( in t$e sai! cases to
t$e !etriment o( &%blic service. 2$is !octrine o( (orgiveness
or con!onation cannot $o,ever a&&l' to criminal acts
//8
,$ic$ t$e reelecte! o((icial ma' $ave committe! !%ring $is
&revio%s term.
6e t$%s r%le t$at an' a!ministrative liabilit' ,$ic$
&etitioner )alalima mig$t $ave inc%rre! in t$e e4ec%tion o(
t$e retainer contract in O.=. Case No. C0G8 an! t$e
inci!ents relate! t$ere,it$ an! in t$e e4ec%tion on Marc$
188/ o( a contract (or a!!itional re&air an! re$abilitation
,or+s (or t$e 2abaco =%blic Mar+et in O.=. Case No. C0C5
are !eeme! e4ting%is$e! b' $is reelection in t$e 11 Ma'
188/ s'nc$roniBe! elections. )o are t$e liabilities i( an' o(
&etitioner members o( t$e )angg%niang =anlala,igan ng
#lba' ,$o signe! -esol%tion No. 1/8 a%t$oriBing &etitioner
)alalima to enter into t$e retainer contract in .%estion an!
,$o ,ere reelecte! in t$e 188/ elections. 2$is is $o,ever
,it$o%t &re9%!ice to t$e instit%tion o( a&&ro&riate civil an!
criminal cases as ma' be ,arrante! b' t$e atten!ant
circ%mstances. #s to &etitioners Kictoria Marcellana -e'eg
Osia an! Cabre!o ,$o became members o( t$e
)angg%niang =anlala,igan onl' a(ter t$eir election in 188/
t$e' co%l! not be$el! a!ministrativel' liable in O.=. case No.
C0G8 (or t$e' $a! not$ing to !o ,it$ t$e sai! resol%tion
,$ic$ ,as a!o&te! in #&ril 1888 'et.
//8
Ganzon v. CA /August 0DD0- supra- see p. D1
Ganzon v. CA /,ovember 0DD01
Facts: )ometime in 1888 a series o( 15 a!ministrative com&laints
,ere (ile! b' vario%s cit' o((icials against &etitioner GanBon t$e
electe! Cit' Ma'or o( *loilo Cit' on vario%s c$arges s%c$ as ab%se
o( a%t$orit' o&&ression grave miscon!%ct an! ot$ers. *n t$e
co%rse o( t$e $earing o( t$e a!ministrative cases )ecretar' )antos
iss%e! against GanBon 1 se&arate or!ers o( &reventive s%s&ension
eac$ o( t$e or!ers to last (or a G5D!a' &erio!. =etitioner assaile!
t$e vali!it' o( t$e sai! or!ers b' (iling ,it$ t$e Co%rt o( #&&eals /
se&arate &etitions (or &ro$ibition. On 7 )e&tember 1888 an! C 7%l'
1885 t$e a&&ellate co%rt ren!ere! a !ecision !ismissing t$e
&etitions (or lac+ o( merit. Hence GanBon (ile! ,it$ t$is Co%rt /
se&arate &etitions assailing t$e !ecision. On /G 7%ne 1885 ,e
iss%e! a 2-O barring t$e res&on!ent )ecretar' (rom im&lementing
t$e s%s&ension or!ers an! restraining t$e en(orcement o( t$e C#>s
/ !ecisions. Ho,ever it a&&ears t$at even be(ore t$e &rom%lgation
on C #%g%st 1881 o( t$e main !ecision res&on!ent )ecretar'
)antos $a! iss%e! on 1 7%l' 1881 against &etitioner GanBon anot$er
or!er o( &reventive s%s&ension in connection ,it$ an
#!ministrative Case (ile! b' 7o&son. On G 7%l' 1881 GanBon (ile!
$is "e4tremel' %rgent motion" ;,it$ s%&&lemental motions later
(ile!< .%estioning t$e vali!it' o( t$e sai! last mentione! s%s&ension
or!er. 2$is Co%rt iss%e! a resol%tion !ate! 8 7%l' 1881 re.%iring
res&on!ents to comment on &etitionerHs %rgent motion. #(ter t$e
main !ecision in t$e &resent &etitions ,as ren!ere! b' t$e Co%rt
on C #%g%st 1881 res&on!ents (ile! motions !ate! 8 an! /8
#%g%st 1881 alleging t$erein t$at t$e iss%es raise! in &etitionerHs
motion ;G 7%l' 1881< ,ere ren!ere! moot an! aca!emic b' t$e sai!
!ecision an! see+ing clari(ication on ,$et$er it ,as still necessar'
to com&l' ,it$ t$is Co%rtHs resol%tions re.%iring res&on!ents to (ile
comment on &etitionerHs sai! motion o( G 7%l' 1881. Mean,$ile on
/8 #%g%st 1881 res&on!ent )antos iss%e! a memoran!%m
a!!resse! to &etitioner GanBon in connection ,it$ t$e C #%g%st
1881 main !ecision stating t$erein t$at t$e t$ir! or!er o(
&reventive s%s&ension iss%e! against &etitioner on 1 Ma' 1885
s$all be !eeme! in (orce an! e((ect. On 15 #%g%st 1881 &etitioner
GanBon (ile! ,it$ t$e C# a &etition (or man!am%s against
res&on!ents. On t$e same !a' &etitioner (ile! in t$ese &etitions $is
"mani(estation an! com&liance" alleging t$at $e $a! alrea!' (%ll'
serve! t$e s%s&ension or!ers iss%e! against $im in com&liance
,it$ t$e main !ecision o( C #%g%st 1881 an! t$at $e s$o%l! be
allo,e! to reDass%me $is o((ice starting 2 (eptember 0DD0.
Mean,$ile in reaction to t$e memoran!%m !ate! /8 #%g%st 1881
iss%e! b' res&on!ent )antos &etitioner (ile! a motion &ra'ing (or
t$e iss%ance o( a 2-O ,$ic$ motion ,as grante! b' t$e Co%rt o(
/15
#&&eals. On 0 )e&tember 1881 res&on!ents (ile! ,it$ t$is Co%rt a
motion as+ing (or t$e iss%ance o( a restraining or!er a!!resse! to
t$e C# an! against t$e 2-O. Granting res&on!entsH motion t$is
Co%rt on C )e&tember 1881 iss%e! a tem&orar' restraining or!er
!irecting t$e C# to cease an! !esist (rom im&lementing t$e 2-O it
$a! iss%e! !ate! 1 )e&tember 1881 imme!iatel' s%s&en!ing t$e
im&lementation o( t$e or!er o( t$e )ecretar' o( *nterior an! Local
Government !ate! /8 #%g%st 1881. On 8 )e&tember 1881
&etitioner GanBon (ile! a motion to !issolve t$is Co%rtHs restraining
or!er !ate! C )e&tember 1881. 2$e recor!s s$o, t$at &etitioner
GanBon to t$is !ate remains s%s&en!e! (rom o((ice ;as t$e electe!
Ma'or o( *loilo Cit'< an! since t$e or!er o( &reventive s%s&ension
!ate! 1 7%l' 1881 ;t$e (o%rt$ s%s&ension or!er 1 < ,as iss%e!
against $im b' res&on!ent )ecretar'A in ot$er ,or!s $e $as been
serving t$e sai! (o%rt$ s%s&ension or!er ,$ic$ is to e4&ire a(ter a
&erio! o( G5 !a's or on 0 )e&tember 1881.
First s%s&ension: 11 #%g%st 1888 (%ll' serve!. )econ!: 11
October 1888 not serve! beca%se its en(orcement ,as
restraine! b' an or!er o( t$e -2C %&on &etition o( &etitioner
$imsel(. 2$ir!: 1 Ma' 1885 t$e main !ecision states t$at
&etitioner is allo,e! to serve t$e !%ration o( sai! t$ir!
s%s&ension or!er. *t ,o%l! seem t$ere(ore t$at a(ter
&etitioner $as serve! in (%ll t$e t$ir! s%s&ension or!er as
!ecree! in t$e main !ecision $e can t$en ret%rn to $is
o((icial !%ties as *loilo Cit' Ma'or. Fo%rt$: 1 7%l' 1881 iss%e!
even be(ore t$e main !ecision o( C #%g%st 1881 ,as
&rom%lgate!. ;2$e recor!s s$o, $o,ever t$at &etitioner
$as in (act (%ll' serve! t$e (o%rt$ s%s&ension or!er as
a!mitte! b' res&on!ents no less. 2$is ,ill be !isc%sse!
s$ortl'A b%t an' iss%e on its vali!it' is no, moot an!
aca!emic. Besi!es it is clear t$at t$is (o%rt$ s%s&ension
or!er is not one o( t$e t$ree or!ers covere! b' an! s%b9ect
o( t$e main !ecision<.
2$ir!: Ma' 0 1885 Ma' 18 1885
)C: 7%ne 8 1885 7%ne /G 1885 recor!s s$o, t$at $e ,as
t$en in o((ice !isc$arging t$e (%nctions o( t$e Ma'or o( *loilo
Cit'. Hence 0G !a's still remain to be serve! as !ecree! b'
t$e main !ecision. *( ,e (ollo, t$e man!ate o( s%c$ main
!ecision ,$ic$ or!aine! t$at t$e t$ir! or!er be serve! an!
t$at t$e tem&orar' restraining or!er 1G against it be li(te!
it ,o%l! (ollo, t$at t$e remaining 0G !a's s$o%l! be serve!
starting C #%g%st 1881 ;!ate o( &rom%lgation o( main
!ecision< %ntil (%ll' serve!. #not$er ,a' to serve t$e 0G
!a's ,o%l! be to begin serving it onl' on 0 )e&tember 1881
;t$e !a' a(ter 1 )e&tember 1881 ,$ic$ ,as t$e last !a' o(
service (or t$e (o%rt$ s%s&ension or!er< or %ntil /5 October
1881 ;t$e 0Gt$ !a' (rom 0 )e&tember 1885<.
Fo%rt$: 7%l' C 1881 )e&tember 1 1881
Ho,ever ,e ta+e note o( t$e (act t$at &etitioner $as alrea!'
(%ll' serve! t$e G5D!a' (o%rt$ or!er o( &reventive
s%s&ension ,$ic$ starte! C 7%l' 1881 ;t$at is even be(ore
t$e main !ecision ,as ren!ere!< an! en!e! on 1 )e&tember
1881. =etitioner raises t$e iss%e o( ,$et$er $e co%l! or
s$o%l! be allo,e! to serve t$e t$ir! an! t$e (o%rt$ or!ers
"sim%ltaneo%sl'". *( ,e allo, $is s%bmission an! acce&t
"sim%ltaneo%s service" it ,o%l! mean t$e (ollo,ing: t$at
(rom C #%g%st 1881 ;t$e !ate t$e 2-O iss%e! b' t$is Co%rt
,as li(te!< %& to 1 )e&tember 1881 ;t$e last !a' (or serving
t$e (o%rt$ or!er< t,ent'Dnine ;/8< !a's $ave ela&se!A t$at
t$ese t,ent'Dnine ;/8< !a's ,$ic$ (orm &art o( $is service
(or t$e (o%rt$ or!er can be also cre!ite! to $is (avor b'
treating sai! t,ent'Dnine ;/8< !a's as (orming &art o( $is
service o( t$e t$ir! or!erA i( t$is ,ere so $e ,o%l! nee! to
serve onl' seventeen ;17< !a's more to com&lete t$e
service o( t$e t$ir! or!erA sai! seventeen ;17< !a's (rom 1
)e&tember 1881 ,ill e4&ire on /5 )e&tember 1881 ,$ic$
,o%l! be t$e last !a' (or serving t$e t$ir! s%s&ension or!er.
*ss%es: 1. 6ON &etitioner can be allo,e! t$e bene(it o(
sim%ltaneo%s service o( &reventive s%s&ensions.
*( sim%ltaneo%s service o( t,o ;/< s%s&ension or!ers is
allo,e! t$is ,o%l! ,or+ in (avor o( t$e &etitioner ;an
elective local o((icial< as t$e balance o( $is t$ir! &reventive
s%s&ension ,o%l! in e((ect be re!%ce! (rom 0G !a's to 17
!a's. *n t$e main !ecision noting t$at s%ccessive
s%s&ensions $ave been in(licte! on Ma'or GanBon ,e state!
t$at ,$at "is intrig%ing is t$at res&on!ent )ecretar' $as
been crac+ing !o,n so to s&ea+ on t$e Ma'or &iecemeal S
a&&arentl' to &in $im !o,n ten times t$e &ain ,$en $e
t$e res&on!ent )ecretar' co%l! $ave &%rs%e! a
consoli!ate! e((ort." 17 )%rel' allo,ing &etitioner to serve
sim%ltaneo%sl' t$e overla&&ing t$ir! an! (o%rt$ s%s&ensions
,ill (avor $im ;an! &res%mabl' t$e local constit%enc'< an!
certainl' lessen i( not o((set t$e $ars$ e((ects o( ,$atever
/11
motive ma' be be$in! t$e intrig%ing action o( t$e
res&on!ent )ecretar' in iss%ing t$ose s%ccessive
s%s&ension or!ers.
LGC: )ec. G1. =reventive )%s&ension b< . . . t$at an' single
&reventive s%s&ension o( local elective o((icial s$all not
e4ten! be'on! si4t' ;G5< !a's: =rovi!e! (%rt$er t$at in t$e
event t$at several a!ministrative cases are (ile! against an
elective o((icial $e cannot be &reventivel' s%s&en!e! (or
more t$an ninet' ;85< !a's ,it$in a single 'ear on t$e same
gro%n! or gro%n!s e4isting an! +no,n at t$e time o( t$e
(irst s%s&ension.
)ince ,e can allo, as ,e $ere allo, %n!er t$e biBarre
circ%mstances o( t$is case &etitioner to serve t$e t$ir! an!
(o%rt$ or!ers sim%ltaneo%sl' ;inso(ar as t$e' overla&< t$is
means t$at as e4&laine! earlier &etitioner s$all serve onl'
17 !a's more ;not 0G !a's< to com&lete t$e service o( t$e
t$ir! or!er t$at is starting (rom 1 )e&tember 1881 an!
en!ing on /5 )e&tember 1881. Hence as o( t$is latter !ate
&etitioner $as com&lie! ,it$ t$e man!ate o( t$e main
!ecision (or $e $as alrea!' (%ll' serve! t$e t$ir! &reventive
s%s&ension ,$ic$ en!e! on /5 )e&tember 1881.
6ON &etitioner m%st also serve $is secon! s%s&ension.
*( ,e (ollo, t$e !ecision ,$ic$ states t$at t$e t$ree ;1<
s%s&ensions are a((irme! t$ere a&&ears to be no reason
,$' t$e secon! or!er s$o%l! not be serve! (or anot$er G5D
!a' &erio!. Ho,ever t$ere is no cogent reason ,$' %n!er
t$e biBarre circ%mstances o( t$is case S ,$ere t$e
res&on!ent )ecretar' $as c$osen to im&ose &reventive
s%s&ensions &iecemeal instea! o( consoli!ating t$e several
a!ministrative cases o( similar nat%re an! close vintage S
,e cannot allo, t$e conce&t o( sim%ltaneo%s service to
a&&l' to t$e secon! or!er ;as ,e !i! in t$e t$ir! or!er<. *t
,o%l! (ollo, t$en t$at t$e secon! or!er is also (%ll' serve!
to t$is !ate (or t$e service o( sai! secon! or!er ,o%l! $ave
starte! on C #%g%st 1881 ;,$en t$e main !ecision ,as
ren!ere! as t$is ,as t$e time ,$en t$is Co%rt (o%n! an!
a((irme! t$e vali!it' o( t$e t$ree ;1< s%s&ension or!ers
incl%!ing t$e secon! or!er<. 2$e G5D!a' &erio! (rom C
#%g%st 1881 e4&ire! on 0 October 1881.
34isting )&ecial Civil #ction in t$e -2C !eeme! moot an!
aca!emic. @n!er t$e main !ecision o( t$is Co%rt !ate! C
#%g%st 1881 secon! &reventive s%s&ension $as been
a((irme!.
Artiea v. (antos /Consoliate "ith Ganzon v. CA- see
above1
%spiritu v. Melgar
Facts: On #&ril 11 1881 Garing (ile! a com&laint c$arging Ma'or
Melgar o( Na%9an ,it$ grave miscon!%ct o&&ression ab%se o(
a%t$orit' c%l&able violation o( t$e Constit%tion an! con!%ct
&re9%!icial to t$e best interest o( t$e &%blic service. #ccor!ing to
t$e c$arge Melgar ,it$ ab%se o( o((icial (%nction !i! t$en an!
t$ere ,il(%ll' %nla,(%ll' an! (elonio%sl' attac+ assa%lt an! %se
&ersonal violence %&on t$e &erson o( Garing b' bo4ing an! +ic+ing
t$ereb' in(licting %&on t$e latter &$'sical in9%ries on !i((erent &arts
o( $is bo!' an! not being contente! or!ere! $is arrest an!
!etention in t$e m%nici&al 9ail o( Na%9an Oriental Min!oro ,it$o%t
(iling an' c$arges %ntil $e ,as release! t$e (ollo,ing !a'. On #&ril
// 1881 t$e )angg%niang =anlala,igan o( Oriental Min!oro
re.%ire! Ma'or Melgar to ans,er t$e com&laint. Melgar allege!
t$at Garing atten!e! gra!%ation ceremonies !r%n+ an! !isr%&te!
s%c$ ceremonies. Garing ,as momentaril' &lace! in c%sto!' (or $is
o,n &rotection beca%se $e ,as !r%n+. #n o&en +ni(e ;balisong< ,as
ta+en (rom $im. * ,as li+e,ise in(orme! t$at a(ter $e $a! sobere!
%& $e ,as tol! to go $ome b%t $e re(%se! to go an! onl' !i! so
t$e (ollo,ing morning. #(ter eval%ation t$e )angg%niang
=anlala,igan o( Oriental Min!oro recommen!e! to t$e =rovincial
Governor t$at res&on!ent be &reventivel' s%s&en!e! (or (ort'D(ive
;0C< !a's &en!ing t$e investigation o( t$e a!ministrative
com&laint. On Ma' /1 1881 Ma'or Melgar (ile! a motion to
!ismiss t$e a!ministrative com&laint. *t ,as o&&ose! b' Garing.
M2D !ismisse!. Mean,$ile &%rs%ant to t$e recommen!ation o( t$e
)angg%niang =anlala,igan Governor 3s&irit% &lace! Ma'or Melgar
%n!er &reventive s%s&ension. On 7%ne 1 1881 Ma'or Melgar
receive! t$e Or!er o( )%s&ension. He (ort$,it$ (ile! a "=etition (or
Certiorari ,it$ =reliminar' *n9%nction ,it$ &ra'er (or -estraining
Or!er" in t$e -egional 2rial Co%rt o( Oriental Min!oro alleging t$at
"t$e or!er o( s%s&ension ,as an arrogant !es&otic an! arbitrar'
ab%se o( &o,er" b' t$e Governor. On 7%ne /0 1881 -2C 7%!ge
Kirola iss%e! a ,rit o( &reliminar' in9%nction en9oining Governor
3s&irit% (rom im&lementing t$e Or!er o( s%s&ension against Ma'or
/1/
Melgar. Governor 3s&irit% (ile! a motion to !ismiss an!?or (or
reconsi!eration ,$ic$ 7%!ge Kirola !enie! on 7%l' 1G 1881. Hence
t$is &etition (or certiorari an! &ro$ibition.
*ss%e: 6on a &rovincial governor ma' s%s&en! a m%nici&al ma'or.
)ection G1 C$a&ter *K o( t$e LGC &rovi!es: )ec. G1.
=reventive )%s&ension. S ;1< =reventive s%s&ension ma' be
im&ose! b' t$e Minister o( Local Government i( t$e
res&on!ent is a &rovincial or cit' o((icial b' t$e &rovincial
governor i( t$e res&on!ent is an elective m%nici&al o((icial
or b' t$e cit' or m%nici&al ma'or i( t$e res&on!ent is an
elective baranga' o((icial. ;/< =reventive s%s&ension ma' be
im&ose! at an'time a(ter t$e iss%es are 9oine! ,$en t$ere
is reasonable gro%n! to believe t$at t$e res&on!ent $as
committe! t$e act or acts com&laine! o( ,$en t$e evi!ence
o( c%l&abilit' is strong ,$en t$e gravit' o( t$e o((ense so
,arrants or ,$en t$e contin%ance in o((ice o( t$e
res&on!ent co%l! in(l%ence t$e ,itnesses or &ose a t$reat to
t$e sa(et' an! integrit' o( t$e recor!s an! ot$er evi!ence.
*n all cases &reventive s%s&ension s$all not e4ten! be'on!
si4t' !a's a(ter t$e start o( sai! s%s&ension. ;1< #t t$e
e4&iration o( si4t'D!a's t$e s%s&en!e! o((icial s$all be
!eeme! reinstate! in o((ice ,it$o%t &re9%!ice to t$e
contin%ation o( t$e &rocee!ings against $im %ntil its
termination. Ho,ever i( t$e !ela' in t$e &rocee!ings o( t$e
case is !%e to $is (a%lt neglect or re.%est t$e time o( t$e
!ela' s$all not be co%nte! in com&%ting t$e time o( t$e
s%s&ension.
Clearl' t$e &rovincial governor o( Oriental Min!oro is
a%t$oriBe! b' la, to &reventivel' s%s&en! t$e m%nici&al
ma'or o( Na%9an at an'time a(ter t$e iss%es $a! been 9oine!
an! an' o( t$e (ollo,ing gro%n!s ,ere s$o,n to e4ist: 1.
6$en t$ere is reasonable gro%n! to believe t$at t$e
res&on!ent $as committe! t$e act or acts com&laine! o(A /.
6$en t$e evi!ence o( c%l&abilit' is strongA 1. 6$en t$e
gravit' o( t$e o((ense so ,arrantsA or 0. 6$en t$e
contin%ance in o((ice o( t$e res&on!ent co%l! in(l%ence t$e
,itnesses or &ose a t$reat to t$e sa(et' an! integrit' o( t$e
recor!s an! ot$er evi!ence.
2$ere is not$ing im&ro&er in s%s&en!ing an o((icer be(ore
t$e c$arges against $im are $ear! an! be(ore $e is given an
o&&ort%nit' to &rove $is innocence. =reventive s%s&ension is
allo,e! so t$at t$e res&on!ent ma' not $am&er t$e normal
co%rse o( t$e investigation t$ro%g$ t$e %se o( $is in(l%ence
an! a%t$orit' over &ossible ,itnesses.
)ince res&on!ent ma'or believe! t$at $is &reventive
s%s&ension ,as %n9%sti(ie! an! &oliticall' motivate! $e
s$o%l! $ave so%g$t relie( (irst (rom t$e )ecretar' o( *nterior
an! Local Government not (rom t$e co%rts. Ma'or MelgarHs
!irect reco%rse to t$e co%rts ,it$o%t e4$a%sting
a!ministrative reme!ies ,as &remat%re. 2$e regional trial
co%rt $a! no 9%ris!iction over )&ecial Civil #ction No. -DC551
an! gravel' ab%se! its !iscretion in re(%sing to !ismiss t$e
case.
2$ere ma' e4ist $onest !i((erences o( o&inion ,it$ regar! to
t$e serio%sness o( t$e c$arges or as to ,$et$er t$e'
,arrant !isci&linar' action. Ho,ever as a general r%le t$e
o((ice or bo!' t$at is investe! ,it$ t$e &o,er o( removal or
s%s&ension s$o%l! be t$e sole 9%!ge o( t$e necessit' an!
s%((icienc' o( t$e ca%se. )o %nless a (lagrant ab%se o( t$e
e4ercise o( t$at &o,er is s$o,n &%blic &olic' an! a
becoming regar! (or t$e &rinci&le o( se&aration o( &o,ers
!eman! t$at t$e action o( sai! o((icer or bo!' s$o%l! be le(t
%n!ist%rbe!. Ho,ever in t$is &artic%lar case since t$e G5D
!a' &reventive s%s&ension o( Ma'or Melgar ,as maintaine!
b' t$e 2em&orar' -estraining Or!er ,$ic$ ,e iss%e! on
#%g%st G 1881 an! t$ere(ore $as alrea!' been serve! $e
is !eeme! reinstate! in o((ice ,it$o%t &re9%!ice to t$e
contin%ation o( t$e a!ministrative investigation o( t$e
c$arges against $im.
Aguinalo v. (antos
Facts: #g%inal!o ,as t$e !%l' electe! Governor o( t$e &rovince o(
Caga'an $aving been electe! to sai! &osition !%ring t$e local
elections $el! on 7an%ar' 17 1888 to serve a term o( (o%r ;0< 'ears
t$ere(rom. He too+ $is oat$ sometimes aro%n! Marc$ 1888. )$ortl'
a(ter December 1888 co%& !Hetat ,as cr%s$e! res&on!ent
)ecretar' o( Local Government sent a telegram an! a letter bot$
!ate! December 0 1888 to &etitioner re.%iring $im to s$o, ca%se
,$' s$o%l! not be s%s&en!e! or remove (rom o((ice (or !islo'alt'
to t$e -e&%blic ,it$in (ort'Deig$t ;08< $o%rs (rom recei&t t$ereo(.
On December 7 1888 a s,orn com&laint (or !islo'alt' to t$e
-e&%blic an! c%l&able violation o( t$e Constit%tion ,as (ile! b' t$e
/11
#gate&s an! Mamba ma'ors o( m%nici&alities in Caga'an against
&etitioner (or acts t$e latter committe! !%ring t$e co%&. =etitioner
!enie! being &riv' to t$e &lanning o( t$e co%& or activel'
&artici&ating in its e4ec%tion t$o%g$ $e a!mitte! t$at $e ,as
s'm&at$etic to t$e ca%se o( t$e rebel sol!iers. On t$e basis t$ereo(
res&on!ent )ecretar' s%s&en!e! &etitioner (rom o((ice (or si4t'
;G5< !a's (rom notice &en!ing t$e o%tcome o( t$e (ormal
investigation into t$e c$arges against $im. 2$e )ecretar' (o%n!
&etitioner g%ilt' an! or!ere! $is removal (rom o((ice. 6$ile t$is
case ,as &en!ing be(ore t$is Co%rt &etitioner (ile! $is certi(icate o(
can!i!ac' (or t$e &osition o( Governor o( Caga'an (or t$e Ma' 11
188/ elections. 2$ree se&arate &etitions (or $is !is.%ali(ication
,ere t$en (ile! against $im all base! on t$e gro%n! t$at $e $a!
been remove! (rom o((ice b' virt%e o( t$e Marc$ 18 1885
resol%tion o( res&on!ent )ecretar'. 2$e COM3L3C grante! t$e
&etitions. On t$e same !a' acting %&on a "Motion to Clari('" (ile!
b' &etitioner t$e Commission r%le! t$at inasm%c$ as t$e
resol%tions o( t$e Commission becomes (inal an! e4ec%tor' onl'
a(ter (ive ;C< !a's (rom &rom%lgation &etitioner ma' still be vote!
%&on as a can!i!ate (or governor &en!ing t$e (inal o%tcome o( t$e
!is.%ali(ication cases ,it$ $is Co%rt. Conse.%entl' on Ma' 11
188/ &etitioner (ile! a &etition (or certiorari ,it$ t$is Co%rt
see+ing to n%lli(' t$e resol%tion o( t$e Commission or!ering $is
!is.%ali(ication. 2$e Co%rt in a resol%tion !ate! Ma' 10 188/
iss%e! a 2-O against t$e Commission to cease an! !esist (rom
en(orcing its Ma' 8 188/ resol%tion &en!ing t$e o%tcome o( t$e
!is.%ali(ication case t$ereb' allo,ing t$e canvassing o( t$e votes
an! ret%rns in Caga'an to &rocee!. Ho,ever t$e Commission ,as
or!ere! not to &roclaim a ,inner %ntil t$is Co%rt $as !eci!e! t$e
case. On 7%ne 8 188/ a resol%tion ,as iss%e! in t$e
a(orementione! case granting &etition an! ann%lling t$e Ma' 8
188/ resol%tion o( t$e Commission on t$e gro%n! t$at t$e !ecision
o( res&on!ent )ecretar' $as not 'et attaine! (inalit' an! is still
&en!ing revie, ,it$ t$is Co%rt. #s &etitioner ,on b' a lan!sli!e
margin in t$e elections t$e resol%tion &ave! t$e ,a' (or $is
event%al &roclamation as Governor o( Caga'an.
*ss%es: 1. 6ON an o((icical ma' be &%nis$ (or acts committe! in a
&revio%s term
Case Moot an! aca!emic beca%se o( #g%inal!o>s reelection.
# &%blic o((icial can not be remove! (or a!ministrative
miscon!%ct committe! !%ring a &rior term since $is reD
election to o((ice o&erates as a con!onation o( t$e o((icerHs
&revio%s miscon!%ct to t$e e4tent o( c%tting o(( t$e rig$t to
remove $im t$ere(or. 2$e (oregoing r%le $o,ever (in!s no
a&&lication to criminal cases &en!ing against &etitioner (or
acts $e ma' $ave committe! !%ring t$e (aile! co%&.
6ON t$e &o,er o( res&on!ent )ecretar' to s%s&en! or
remove local government o((icial %n!er )ection G5 C$a&ter
*K o( B.=. Blg. 117 ,as re&eale! b' t$e 1887 Constit%tion.
2$e &o,er o( res&on!ent )ecretar' to remove local
government o((icials is anc$ore! on bot$ t$e Constit%tion
an! a stat%tor' grant (rom t$e legislative branc$. 2$e
constit%tional basis is &rovi!e! b' #rticles K** ;17< an! J ;0<
o( t$e 1887 Constit%tion ,$ic$ vest in t$e =resi!ent t$e
&o,er o( control over all e4ec%tive !e&artments b%rea%s
an! o((ices an! t$e &o,er o( general s%&ervision over local
governments an! b' t$e !octrine t$at t$e acts o( t$e
!e&artment $ea! are &res%m&tivel' t$e acts o( t$e
=resi!ent %nless e4&ressl' re9ecte! b' $im.
2$e stat%tor' grant (o%n! in B.=. Blg. 117 itsel( $as
constit%tional roots $aving been enacte! b' t$e t$en
Batasan =ambansa &%rs%ant to #rticle J* o( t$e 1871
Constit%tion )ection / o( ,$ic$ s&eci(icall' &rovi!e! as
(ollo,s: )ec. /. 2$e National #ssembl' s$all enact a LGC
,$ic$ ma' not t$erea(ter be amen!e! e4ce&t b' a ma9orit'
vote o( all its Members !e(ining a more res&onsive an!
acco%ntable local government str%ct%re ,it$ an e((ective
s'stem o( recall allocating among t$e !i((erent local
government %nits t$eir &o,ers res&onsibilities an!
reso%rces an! &rovi!ing (or t$e .%ali(ications election an!
removal term salaries &o,er (%nctions an! !%ties o( local
government o((icials an! all ot$er matters relating to t$e
organiBation an! o&eration o( t$e local %nits. Ho,ever an'
c$ange in t$e e4isting (orm o( local government s$all not
ta+e e((ect %ntil rati(ie! b' a ma9orit' o( t$e votes cast in
t$e &lebiscite calle! (or t$e &%r&ose.
# similar &rovision is (o%n! in )ection 1 #rticle J o( t$e
1887 Constit%tion ,$ic$ rea!s: )ec. 1. 2$e Congress s$all
enact a LGC ,$ic$ s$all &rovi!e! (or a more res&onsive an!
acco%ntable local government str%ct%re instit%te! t$ro%g$ a
s'stem o( !ecentraliBation ,it$ e((ective mec$anisms o(
recall initiative an! re(eren!%m allocate among t$e
!i((erent local government %nits t$eir &o,ers
/10
res&onsibilities an! reso%rces an! &rovi!e (or t$e
.%ali(ications election a&&ointment an! removal term an!
salaries &o,ers an! (%nctions an! !%ties o( local o((icials
an! all ot$er matters relating to t$e organiBation an!
o&eration o( t$e local %nits.
*nasm%c$ as t$e &o,er an! a%t$orit' o( t$e legislat%re to
enact a LGC ,$ic$ &rovi!es (or t$e manner o( removal o(
local government o((icials is (o%n! in t$e 1871 Constit%tion
as ,ell as in t$e 1887 Constit%tion t$en it can not be sai!
t$at B= Blg. 117 ,as re&eale! b' t$e e((ective o( t$e
&resent Constit%tion.
Bagab%'o v. Davi!e: t$at B.=. Blg. 117 remaine! in (orce
!es&ite t$e e((ectivit' o( t$e &resent Constit%tion %ntil s%c$
time as t$e &ro&ose! LGC o( 1881 is a&&rove!. 2$e &o,er o(
res&on!ent )ecretar' o( t$e De&artment o( Local
Government to remove local elective government o((icials is
(o%n! in )ecs. G5 an! G1 o( B.=. Blg. 117.
#s to &etitionerHs arg%ment o( t$e ,ant o( a%t$orit' o(
res&on!ent )ecretar' to a&&oint res&on!ent Melvin Kargas
as Governor o( Caga'an 6e nee! b%t &oint to )ection 08
;1< o( B.=. Blg 117 to s$o, t$e (allac' o( t$e same to ,it S
*n case a &ermanent vacanc' arises ,$en a governor . . .
re(%ses to ass%me o((ice (ails to .%alit' !ies or is remove!
(rom o((ice vol%ntaril' resigns or is ot$er,ise &ermanentl'
inca&acitate! to !isc$arge t$e (%nctions o( $is o((ice t$e
viceDgovernor . . . s$all ass%me t$e o((ice (or t$e %ne4&ire!
term o( t$e (ormer.
6ON t$e allege! act o( !islo'alt' committe! b' &etitioner
s$o%l! be &rove! b' &roo( be'on! reasonable !o%bt an!
not be a mere &re&on!erance o( evi!ence beca%se it is an
act &%nis$able as rebellion %n!er t$e -evise! =enal Co!e.
=etitioner is not being &rosec%te! criminall' %n!er t$e
&rovisions o( t$e -evise! =enal Co!e b%t a!ministrativel'
,it$ t$e en! in vie, o( removing &etitioner as t$e !%l'
electe! Governor o( Caga'an =rovince (or acts o( !islo'alt'
to t$e -e&%blic ,$ere t$e .%ant%m o( &roo( re.%ire! is onl'
s%bstantial evi!ence.
Re#es v. COM%L%C
Facts: -e'es ,as t$e inc%mbent ma'or o( t$e m%nici&alit' o(
Bongabong Oriental Min!oro $aving been electe! to t$at o((ice on
Ma' 11 188/. On October /G 1880 an a!ministrative com&laint
,as (ile! against $im ,it$ t$e )angg%niang =anlala,igan b'
Manalo. *t ,as allege! among ot$er t$ings t$at &etitioner e4acte!
an! collecte! =C555555 (rom eac$ mar+et stall $ol!er in t$e
Bongabong =%blic Mar+etA t$at certain c$ec+s iss%e! to $im b' t$e
National -econciliation an! Develo&ment =rogram o( t$e
De&artment o( *nterior an! Local Government ,ere never receive!
b' t$e M%nici&al 2reas%rer nor re(lecte! in t$e boo+s o( acco%nts o(
t$e same o((icerA an! t$at $e too+ t,ent'Dseven ;/7< $ea!s o(
cattle (rom bene(iciaries o( a cattle !is&ersal &rogram a(ter t$e
latter $a! reare! an! (attene! t$e cattle (or seven mont$s. *n its
!ecision !ate! Febr%ar' G 188C t$e )angg%niang =anlala,igan
(o%n! &etitioner g%ilt' o( t$e c$arges an! or!ere! $is removal (rom
o((ice. *t a&&ears t$at earlier a(ter learning t$at t$e )angg%nian
$a! terminate! t$e &rocee!ings in t$e case an! ,as abo%t to
ren!er 9%!gment &etitioner (ile! a &etition (or certiorari &ro$ibition
an! in9%nction ,it$ t$e -egional 2rial Co%rt o( Oriental Min!oro
Branc$ 0/ alleging t$at t$e &rocee!ings $a! been terminate!
,it$o%t giving $im a c$ance to be $ear!. # 2-O ,as iss%e! b' t$e
co%rt on Febr%ar' 7 188C en9oining t$e )angg%niang =anlala,igan
(rom &rocee!ing ,it$ t$e case. #s a res%lt t$e !ecision o( t$e
)angg%niang =anlala,igan co%l! not be serve! %&on -e'es. B%t on
Marc$ 1 188C (ollo,ing t$e e4&iration o( t$e tem&orar'
restraining or!er an! ,it$o%t an' in9%nction being iss%e! b' t$e
-egional 2rial Co%rt an attem&t ,as ma!e to serve t$e !ecision
%&on &etitionerHs co%nsel in Manila. Ho,ever t$e latter re(%se! to
acce&t t$e !ecision. )%bse.%ent attem&ts to serve t$e !ecision
%&on &etitioner $imsel( also (aile! as $e also re(%se! to acce&t t$e
!ecision. On Marc$ /1 188C t$e =resi!ing O((icer o( t$e
)angg%niang =anlala,igan Kice Governor =e!rito #. -e'es iss%e!
an or!er (or &etitioner to vacate t$e &osition o( ma'or an!
&eace(%ll' t%rn over t$e o((ice to t$e inc%mbent vice ma'or. B%t
service o( t$e or!er %&on &etitioner ,as also re(%se!.
Mean,$ile on Marc$ /5 188C &etitioner (ile! a certi(icate o(
can!i!ac' ,it$ t$e O((ice o( t$e 3lection O((icer o( t$e COM3L3C in
Bongabong. On Marc$ /0 188C &rivate res&on!ent -ogelio !e
Castro as registere! voter o( Bongabong so%g$t t$e
!is.%ali(ication o( &etitioner as can!i!ate (or ma'or citing t$e LGC
o( 1881 ;-.#. No .71G5< ,$ic$ states: c05. Dis.%ali(ication. S 2$e
(ollo,ing &ersons are !is.%ali(ie! (rom r%nning (or an' elective
local &osition: ;b< 2$ose remove! (rom o((ice as a res%lt o( an
a!ministrative case. Nonet$eless beca%se o( t$e absence o( an'
/1C
contrar' or!er (rom t$e COM3L3C &etitioner -e'es ,as vote! (or
in t$e elections $el! on Ma' 8 188C. On Ma' 8 188C t$e
COM3L3CHs )econ! Division !is.%ali(ie! -e'es. On Ma' 15 188C
t$e M%nici&al Boar! o( Canvassers o( Bongabong a&&arentl'
%na,are o( t$e !is.%ali(ication o( -e'es b' t$e COM3L3C
&roclaime! $im t$e !%l'Delecte! ma'or. M- !enie!. 3n banc:
vali!l' !is.%ali(ie!. Hence t$e &etition.
*ss%e: 1. 6ON !ecision o( t$e )angg%niang =anlala,igan or!ering
-e'es remove! (rom o((ice is not 'et (inal beca%se $e $as not
been serve! a co&' t$ereo(.
Fail%re o( t$e )angg%niang =anlala,igan to !eliver a co&' o(
its !ecision ,as !%e to t$e re(%sal o( &etitioner an! $is
co%nsel to receive t$e !ecision. #s t$e secretar' to t$e
)angg%niang =anlala,igan Mario ManBo state! in $is
certi(ication re&eate! attem&ts $a! been ma!e to serve t$e
!ecision on -e'es &ersonall' an! b' registere! mail b%t
-e'es re(%se! to receive t$e !ecision.
-%le 11 cc 1 an! 7 o( t$e -%les o( Co%rt &rovi!e (or t$e
service o( (inal or!ers an! 9%!gments eit$er &ersonall' or b'
mail. =ersonal service is com&lete! %&on act%al or
constr%ctive !eliver' ,$ic$ ma' be ma!e b' !elivering a
co&' &ersonall' to t$e &art' or $is attorne' or b' leaving it
in $is o((ice ,it$ a &erson $aving c$arge t$ereo( or at $is
resi!ence i( $is o((ice is not +no,n. 0 Hence service ,as
com&lete! ,$en t$e !ecision ,as serve! %&on &etitionerHs
co%nsel in $is o((ice in Manila on Marc$ 1 188C. *n a!!ition
as t$e secretar' o( t$e )angg%niang =anlala,igan certi(ie!
service b' registere! mail ,as also ma!e on &etitioner
-e'es. #lt$o%g$ t$e mail containing t$e !ecision ,as not
claime! b' $im service ,as !eeme! com&lete! (ive !a's
a(ter t$e last notice to $im on Marc$ /7 188C.
*( a 9%!gment or !ecision is not !elivere! to a &art' (or
reasons attrib%table to $im service is !eeme! com&lete!
an! t$e 9%!gment or !ecision ,ill be consi!ere! vali!l'
serve! as long as it can be s$o,n t$at t$e attem&t to
!eliver it to $im ,o%l! be vali! ,ere it not (or $is or $is
co%nselHs re(%sal to receive it.
*n!ee! t$at &etitionerHs co%nsel +ne, t$at a !ecision in t$e
a!ministrative case $a! been ren!ere! is evi!ent in $is
e((ort to bargain ,it$ t$e co%nsel (or t$e )angg%niang
=anlala,igan not to $ave t$e !ecision serve! %&on $im an!
$is client ,$ile t$eir &etition (or certiorari in t$e -egional
2rial Co%rt ,as &en!ing. His re(%sal to receive t$e !ecision
ma' t$ere(ore be constr%e! as a ,aiver on $is &art to $ave
a co&' o( t$e !ecision.
=etitioner ,as given s%((icient notice o( t$e !ecision.
=r%!ence re.%ire! t$at rat$er t$an resist t$e service $e
s$o%l! $ave receive! t$e !ecision an! ta+en an a&&eal to
t$e O((ice o( t$e =resi!ent in accor!ance ,it$ -.#. No. 71G5
c G7. 8 B%t &etitioner !i! not !o so. #ccor!ingl' t$e
!ecision became (inal on #&ril / 188C 15 !a's a(ter t$e
(irst service %&on &etitioner.
2$e net res%lt is t$at ,$en t$e elections ,ere $el! on Ma'
8 188C t$e !ecision o( t$e )angg%niang =anlala,igan $a!
alrea!' become (inal an! e4ec%tor'. 2$e (iling o( a &etition
(or certiorari ,it$ t$e -egional 2rial Co%rt !i! not &revent
t$e a!ministrative !ecision (rom attaining (inalit'. #n
original action o( certiorari is an in!e&en!ent action an!
!oes not interr%&t t$e co%rse o( t$e &rinci&al action nor t$e
r%nning o( t$e reglementar' &erio! involve! in t$e
&rocee!ing.
Conse.%entl' to arrest t$e co%rse o( t$e &rinci&al action
!%ring t$e &en!enc' o( t$e certiorari &rocee!ings t$ere
m%st be a restraining or!er or a ,rit o( &reliminar'
in9%nction (rom t$e a&&ellate co%rt !irecte! to t$e lo,er
co%rt. *n t$e case at bar alt$o%g$ a tem&orar' restraining
or!er ,as iss%e! b' t$e -egional 2rial Co%rt no &reliminar'
in9%nction ,as s%bse.%entl' iss%e!. 2$e tem&orar'
restraining or!er iss%e! e4&ire! a(ter /5 !a's. From t$at
moment on t$ere ,as no more legal barrier to t$e service
o( t$e !ecision %&on &etitioner.
=etitioner claims t$at t$e !ecision cannot be serve! %&on
$im beca%se at t$e $earing $el! on Febr%ar' 1C 188C o(
t$e case ,$ic$ $e (ile! in t$e -2C t$e co%nsel o( t$e
)angg%niang =anlala,igan #tt'. Nestor #tienBa agree! not
to e((ect service o( t$e !ecision o( t$e )angg%niang
=anlala,igan &en!ing (inal resol%tion o( t$e &etition (or
certiorari.
2$e allege! agreement bet,een t$e co%nsels o( -e'es an!
t$e )angg%niang =anlala,igan cannot bin! t$e )angg%niang
=anlala,igan. *t ,as illegal . #n! it ,o%l! $ave been no less
illegal (or t$e )angg%niang =anlala,igan to $ave carrie! it
o%t beca%se -.#. No. 71G5 c GG ;a< ma+es it man!ator' t$at
/1G
"UcVo&ies o( t$e !ecision Uo( t$e )angg%niang =anlala,iganV
s$all imme!iatel' be (%rnis$e! to res&on!ent an!?or
intereste! &arties." *t ,as t$e )angg%niang =anlala,iganHs
!%t' to serve it %&on t$e &arties ,it$o%t %nnecessar' !ela'.
2o $ave !ela'e! t$e service o( t$e !ecision ,o%l! $ave
res%lte! in t$e )angg%niang =anlala,iganHs (ail%re to
&er(orm a legal !%t'. *t t$ere(ore &ro&erl' acte! in $aving
its !ecision serve! %&on &etitioner -e'es.
/. 6ON election o( &etitioner ren!ere! t$e a!ministrative
c$arges against $im moot an! aca!emic.
=etitioner invo+es t$e r%ling in #g%inal!o v. COM3L3C
,$ic$ $el! t$at a &%blic o((icial co%l! not be remove! (or
miscon!%ct committe! !%ring a &rior term an! t$at $is
reelection o&erate! as a con!onation o( t$e o((icerHs
&revio%s miscon!%ct to t$e e4tent o( c%tting o(( t$e rig$t to
remove $im t$ere(or. B%t t$at ,as beca%se in t$at case
be(ore t$e &etition .%estioning t$e vali!it' o( t$e
a!ministrative !ecision removing &etitioner co%l! be
!eci!e! t$e term o( o((ice !%ring ,$ic$ t$e allege!
miscon!%ct ,as committe! e4&ire!. -emoval cannot e4ten!
be'on! t$e term !%ring ,$ic$ t$e allege! miscon!%ct ,as
committe!. *( a &%blic o((icial is not remove! be(ore $is term
o( o((ice e4&ires $e can no longer be remove! i( $e is
t$erea(ter reelecte! (or anot$er term.
2$e case at bar is t$e ver' o&&osite o( t$ose cases. Here
alt$o%g$ &etitioner -e'es bro%g$t an action to .%estion t$e
!ecision in t$e a!ministrative case t$e tem&orar'
restraining or!er iss%e! in t$e action $e bro%g$t la&se!
,it$ t$e res%lt t$at t$e !ecision ,as serve! on &etitioner
an! it t$erea(ter became (inal on #&ril 1 188C beca%se
&etitioner (aile! to a&&eal to t$e O((ice o( t$e =resi!ent. He
,as t$%s vali!l' remove! (rom o((ice an! &%rs%ant to c
05;b< o( t$e LGC $e ,as !is.%ali(ie! (rom r%nning (or
reelection.
#t t$e time t$e #g%inal!o cases ,ere !eci!e! t$ere ,as no
&rovision similar to c 05;b< ,$ic$ !is.%ali(ies an' &erson
(rom r%nning (or an' elective &osition on t$e gro%n! t$at $e
$as been remove! as a res%lt o( an a!ministrative case. 2$e
LGC o( 1881 ;-.#. No. 71G5< co%l! not be given retroactive
e((ect. )ai! t$e Co%rt in t$e (irst #g%inal!o case: 2$e
COM3L3C a&&lie! )ection 05;b< o( t$e LGC -e&%blic #ct
71G5< ,$ic$ &rovi!es: )ec. 05. 2$e (ollo,ing &ersons are
!is.%ali(ie! (rom r%nning (or an' elective local &osition: ;b<
2$ose remove! (rom o((ice as a res%lt o( an a!ministrative
case.
-e&%blic #ct 71G5 too+ e((ect onl' on 7an%ar' 1 188/. 2$ere
is no &rovision in t$e stat%te ,$ic$ ,o%l! clearl' in!icate
t$at t$e same o&erates retroactivel'. 05;b< o( t$e LGC is not
a&&licable to t$e &resent case.
#ll in all $erein res&on!ent Ma'or -e'es ,as given b' t$is
)angg%nian a &erio! o( si4t' one ;G1< !a's to (ile $is veri(ie!
ans,er $o,ever $e resorte! to !ilator' motions ,$ic$ in
t$e en! &rove! (atal to $is ca%se. Keritabl' $e neit$er (ile!
nor (%rnis$e! t$e com&lainant a co&' o( $is ans,er. Fail%re
o( t$e res&on!ent to (ile $is veri(ie! ans,er ,it$in (i(teen
;1C< !a's (rom recei&t o( t$e com&laint s$all be consi!ere!
a ,aiver o( $is rig$ts to &resent evi!ence in $is be$al( ;;1<.
#rt. 1/G o( -%les an! -eg%lations im&lementing t$e LGC o(
1881<. #ll &ersons s$all $ave t$e rig$t to a s&ee!'
!is&osition o( t$eir cases be(ore all 9%!icial .%asiD9%!icial or
a!ministrative bo!ies ;)ec. 1G #rt. *** o( t$e Constit%tion<.
*n!ee! it a&&ears t$at &etitioner ,as given s%((icient
o&&ort%nit' to (ile $is ans,er. He (aile! to !o so.
Nonet$eless $e ,as tol! t$at t$e com&lainant ,o%l! be
&resenting $is evi!ence an! t$at $e ;&etitioner< ,o%l! t$en
$ave t$e o&&ort%nit' to crossDe4amine t$e ,itnesses. B%t on
t$e !ate set $e (aile! to a&&ear. He ,o%l! sa' later t$at
t$is ,as beca%se $e $a! (ile! a motion (or &ost&onement
an! ,as a,aiting a r%ling t$ereon. 2$is onl' betra's t$e
&attern o( !ela' $e em&lo'e! to ren!er t$e case against
$im moot b' $is election.
/. 6ON COM3L3C committe! a grave ab%se o( !iscretion in
!en'ing &etitioner 7%li%s O. GarciaHs &etition to be
&roclaime! ma'or in vie, o( t$e !is.%ali(ication o( -enato
@. -e'es.
2o sim&listicall' ass%me t$at t$e secon! &lacer ,o%l! $ave
receive! t$e ot$er votes ,o%l! be to s%bstit%te o%r
9%!gment (or t$e min! o( t$e voter. 2$e secon! &lacer is 9%st
t$at a secon! &lacer. He lost t$e elections. He ,as
re&%!iate! b' eit$er a ma9orit' or &l%ralit' o( voters. He
co%l! not be consi!ere! t$e (irst among .%ali(ie! can!i!ates
beca%se in a (iel! ,$ic$ e4cl%!es t$e !is.%ali(ie! can!i!ate
t$e con!itions ,o%l! $ave s%bstantiall' c$ange!. 6e are
/17
not &re&are! to e4tra&olate t$e res%lts %n!er t$e
circ%mstances.
9aga v. Gozo;*aole
Facts: Criminal an! a!ministrative com&laints ,ere (ile! against
Ma'or O%ano KiceDMa'or CaRete an! )angg%niang =anl%ngso!
Member Ma'ol all &%blic o((icials o( Man!a%e Cit' b' Man!a%e
Cit' Co%ncilors Dionson an! Berce!e ,it$ t$e O((ice o( t$e De&%t'
Omb%!sman (or t$e Kisa'as. Co%ncilors Dionson an! Berce!e
averre! t$at res&on!ent o((icials acting in cons&irac' $a! ca%se!
t$e alteration an!?or (alsi(ication o( Or!inance No. 518?8/ b'
increasing t$e allocate! a&&ro&riation t$erein (rom =10801G0.C7
to =7555555.55 ,it$o%t a%t$orit' (rom t$e )angg%niang
=anl%ngso! o( Man!a%e Cit'. 2$e' move! (or t$e &reventive
s%s&ension o( res&on!ent o((icials in t$e se&aratel' !oc+ete!
a!ministrative case. #si!e (rom o&&osing t$e motion (or &reventive
s%s&ension res&on!ent o((icials on 5C #%g%st 188/ &ra'e! (or t$e
!ismissal o( t$e com&laint on t$e gro%n! t$at t$e Omb%!sman
s%&&ose!l' ,as bere(t o( 9%ris!iction to tr' $ear an! !eci!e t$e
a!ministrative case (ile! against t$em since %n!er )ection G1 o(
t$e LGC o( 1881 t$e &o,er to investigate an! im&ose
a!ministrative sanctions against sai! local o((icials as ,ell as to
e((ect t$eir &reventive s%s&ension $a! no, been veste! ,it$ t$e
O((ice o( t$e =resi!ent.
*ss%e: 1. 6ON t$e Omb%!sman $as 9%ris!iction.
2$e general investigator' &o,er o( t$e Omb%!sman is
!ecree! b' )ection 11 ;1< #rticle J* o( t$e 1887
Constit%tion 10 t$%s: )ec. 11. 2$e O((ice o( t$e Omb%!sman
s$all $ave t$e (ollo,ing &o,ers (%nctions an! !%ties: ;1<
*nvestigate on its o,n or on com&laint b' an' &erson an'
act or omission o( an' &%blic o((icial em&lo'ee o((ice or
agenc' ,$en s%c$ act or omission a&&ears to be illegal
%n9%st im&ro&er or ine((icientA
)ection 18 o( -.#. No. G775: #!ministrative com&laints. S
2$e Omb%!sman s$all act on all com&laints relating b%t not
limite! to acts or omissions ,$ic$: 1. #re contrar' to la, or
reg%lationA /. #re %nreasonable %n(air o&&ressive or
!iscriminator'A 1. #re inconsistent ,it$ t$e general co%rse
o( an agenc'Hs (%nctions t$o%g$ in accor!ance ,it$ la,A 0.
=rocee! (rom a mista+e o( la, or an arbitrar' ascertainment
o( (actsA C. #re in t$e e4ercise o( !iscretionar' &o,ers b%t
(or an im&ro&er &%r&oseA or G. #re ot$er,ise irreg%lar
immoral or !evoi! o( 9%sti(ication.
)ec. /1. O((icials )%b9ect to Disci&linar' #%t$orit'A
34ce&tions. S 2$e O((ice o( t$e Omb%!sman s$all $ave
!isci&linar' a%t$orit' over all elective an! a&&ointive
o((icials o( t$e Government an! its s%b!ivisions
instr%mentalities an! agencies incl%!ing Members o( t$e
Cabinet local government governmentDo,ne! or controlle!
cor&orations an! t$eir s%bsi!iaries e4ce&t over o((icials ,$o
ma' be remove! onl' b' im&eac$ment or over Members o(
Congress an! t$e 7%!iciar'.
)ection /0 o( -.#. No. G775: =reventive )%s&ension. S 2$e
Omb%!sman or $is De&%t' ma' &reventivel' s%s&en! an'
o((icer or em&lo'ee %n!er $is a%t$orit' &en!ing an
investigation i( in $is 9%!gment t$e evi!ence o( g%ilt is
strong an! ;a< t$e c$arge against s%c$ o((icer or em&lo'ee
involves !is$onest' o&&ression or grave miscon!%ct or
neglect in t$e &er(ormance o( !%t'A ;b< t$e c$arges ,o%l!
,arrant removal (rom t$e serviceA or ;c< t$e res&on!entHs
contin%e! sta' in o((ice ma' &re9%!ice t$e case (ile! against
$im. 2$e &reventive s%s&ension s$all contin%e %ntil t$e case
is terminate! b' t$e O((ice o( t$e Omb%!sman b%t not more
t$an si4 mont$s ,it$o%t &a' e4ce&t ,$en t$e !ela' in t$e
!is&osition o( t$e case b' t$e O((ice o( t$e Omb%!sman is
!%e to t$e (a%lt negligence or &etition o( t$e res&on!ent in
,$ic$ case t$e &erio! o( s%c$ !ela' s$all not be co%nte! in
com&%ting t$e &erio! o( s%s&ension $erein &rovi!e!.
2$ere is not$ing in t$e LGC to in!icate t$at it $as re&eale!
,$et$er e4&ressl' or im&lie!l' t$e &ertinent &rovisions o(
t$e Omb%!sman #ct. 2$e t,o stat%tes on t$e s&eci(ic
matter in .%estion are not so inconsistent let alone
irreconcilable as to com&el %s to onl' %&$ol! one an! stri+e
!o,n t$e ot$er . 6ell settle! is t$e r%le t$at re&eals o( la,s
b' im&lication are not (avore! an! t$at co%rts m%st
generall' ass%me t$eir congr%ent a&&lication. 2$e t,o la,s
m%st be absol%tel' incom&atible an! a clear (in!ing t$ereo(
m%st s%r(ace be(ore t$e in(erence o( im&lie! re&eal ma' be
!ra,n. 2$e r%le is e4&resse! in t$e ma4im inter&retare et
concor!are legib%s est o&tim%s inter&reten!i i.e. ever'
stat%te m%st be so inter&rete! an! bro%g$t into accor! ,it$
ot$er la,s as to (orm a %ni(orm s'stem o( 9%ris&r%!ence.
/18
2$e (%n!ament is t$at t$e legislat%re s$o%l! be &res%me! to
$ave +no,n t$e e4isting la,s on t$e s%b9ect an! not to $ave
enacte! con(licting stat%tes. Hence all !o%bts m%st be
resolve! against an' im&lie! re&eal an! all e((orts s$o%l!
be e4erte! in or!er to $armoniBe an! give e((ect to all la,s
on t$e s%b9ect.
Certainl' Congress ,o%l! not $ave inten!e! to !o in9%stice
to t$e ver' reason t$at %n!erlies t$e creation o( t$e
Omb%!sman in t$e 1887 Constit%tion ,$ic$ "is to ins%late
sai! o((ice (rom t$e long tentacles o( o((icial!om."
)ections G1 an! G1 o( t$e &resent LGC r%n almost &arallel
,it$ t$e &rovisions t$en e4isting %n!er t$e ol! co!e. )ection
G1 an! )ection G1 o( t$e &rec%rsor LGC o( 1881 %n!er t$e
$ea!ing o( ")%s&ension an! -emoval" rea!: )ec. G1. Form
an! Filing o( Com&laints. S Keri(ie! com&laints against local
elective o((icials s$all be &re&are! as (ollo,s: ;a< #gainst
an' elective &rovincial or cit' o((icial be(ore t$e Minister o(
Local Government.
)ec. G1. =reventive )%s&ension. S ;1< =reventive
s%s&ension ma' be im&ose! b' t$e Minister o( Local
Government i( t$e res&on!ent is a &rovincial or cit' o((icial
b' t$e &rovincial governor i( t$e res&on!ent is an elective
m%nici&al o((icial or b' t$e cit' or m%nici&al ma'or i( t$e
res&on!ent is an elective baranga' o((icial. ;/< =reventive
s%s&ension ma' be im&ose! at an' time a(ter t$e iss%es are
9oine! ,$en t$ere is reasonable gro%n! to believe t$at t$e
res&on!ent $as committe! t$e act or acts com&laine! o(
,$en t$e evi!ence o( c%l&abilit' is strong ,$en t$e gravit'
o( t$e o((ense so ,arrants or ,$en t$e contin%ance in o((ice
o( t$e res&on!ent co%l! in(l%ence t$e ,itnesses or &ose a
t$reat to t$e sa(et' an! integrit' o( t$e recor!s an! ot$er
evi!ence. *n all cases &reventive s%s&ension s$all not
e4ten! be'on! si4t' !a's a(ter t$e start o( sai! s%s&ension.
;1< #t t$e e4&iration o( si4t' !a's t$e s%s&en!e! o((icial
s$all be !eeme! reinstate! in o((ice ,it$o%t &re9%!ice to t$e
contin%ation o( t$e &rocee!ings against $im %ntil its
termination. Ho,ever i( t$e !ela' in t$e &rocee!ings o( t$e
case is !%e to $is (a%lt neglect or re.%est t$e time o( t$e
!ela' s$all not be co%nte! in com&%ting t$e time o(
s%s&ension.
2$e a%t$orit' to con!%ct a!ministrative investigation an! to
im&ose &reventive s%s&ension over elective &rovincial or
cit' o((icials ,as at t$at time entr%ste! to t$e Minister o(
Local Government %ntil it became conc%rrent ,it$ t$e
Omb%!sman %&on t$e enactment o( -.#. No. G775
s&eci(icall' %n!er )ections /1 an! /0 t$ereo( to t$e e4tent
o( t$e common grant. 2$e LGC o( 1881 ;-.#. No. 71G5< in
(ine !i! not e((ect a c$ange (rom ,$at alrea!' &revaile!
t$e mo!i(ication being onl' in t$e s%bstit%tion o( t$e
)ecretar' ;t$e Minister< o( Local Government b' t$e O((ice
o( t$e =resi!ent.
/. 6ON t$e GDmont$ &reventive s%s&ension ,it$o%t &a' %n!er
)ection /0 o( t$e Omb%!sman #ct is m%c$ too re&%gnant to
t$e G5D!a' &reventive s%s&ension &rovi!e! b' )ection G1 o(
t$e LGC to even no, maintain it>s a&&lication.
2$e t,o &rovisions govern !i((erentl'. *n or!er to 9%sti(' t$e
&reventive s%s&ension o( a &%blic o((icial %n!er )ection /0
o( -.#. No. G775 t$e evi!ence o( g%ilt s$o%l! be strong an!
;a< t$e c$arge against t$e o((icer or em&lo'ee s$o%l!
involve !is$onest' o&&ression or grave miscon!%ct or
neglect in t$e &er(ormance o( !%t'A ;b< t$e c$arges s$o%l!
,arrant removal (rom t$e serviceA or ;c< t$e res&on!entHs
contin%e! sta' in o((ice ,o%l! &re9%!ice t$e case (ile!
against $im. 2$e Omb%!sman can im&ose t$e GDmont$
&reventive s%s&ension to all &%blic o((icials ,$et$er elective
or a&&ointive ,$o are %n!er investigation. @&on t$e ot$er
$an! in im&osing t$e s$orter &erio! o( si4t' ;G5< !a's o(
&reventive s%s&ension &rescribe! in t$e LGC o( 1881 on an
elective local o((icial ;at an' time a(ter t$e iss%es are
9oine!< it ,o%l! be eno%g$ t$at ;a< t$ere is reasonable
gro%n! to believe t$at t$e res&on!ent $as committe! t$e
act or acts com&laine! o( ;b< t$e evi!ence o( c%l&abilit' is
strong ;c< t$e gravit' o( t$e o((ense so ,arrants or ;!< t$e
contin%ance in o((ice o( t$e res&on!ent co%l! in(l%ence t$e
,itnesses or &ose a t$reat to t$e sa(et' an! integrit' o( t$e
recor!s an! ot$er evi!ence.
/. 6ON &etitioner committe! grave ab%se o( !iscretion ,$en
$e ca%se! t$e iss%ance o( t$e &reventive s%s&ension or!er
,it$o%t an' $earing.
2$e recor!s reveal t$at &etitioner iss%e! t$e or!er o(
&reventive s%s&ension a(ter t$e (iling ;a< b' res&on!ent
o((icials o( t$eir o&&osition on t$e motion (or &reventive
s%s&ension an! ;b< b' Ma'or O%ano o( $is memoran!%m in
com&liance ,it$ t$e !irective o( &etitioner. Be t$at as it
/18
ma' ,e $ave $ereto(ore $el! t$at not being in t$e nat%re
o( a &enalt' a &reventive s%s&ension can be !ecree! on an
o((icial %n!er investigation a(ter c$arges are bro%g$t an!
even be(ore t$e c$arges are $ear!. Nat%rall' s%c$ a
&reventive s%s&ension ,o%l! occ%r &rior to an' (in!ing o(
g%ilt or innocence.
*n connection ,it$ t$e s%s&ension o( &etitioner be(ore $e
co%l! (ile $is ans,er to t$e a!ministrative com&laint s%((ice
it to sa' t$at t$e s%s&ension ,as not a &%nis$ment or
&enalt' (or t$e acts o( !is$onest' an! miscon!%ct in o((ice
b%t onl' as a &reventive meas%re. )%s&ension is a
&reliminar' ste& in an a!ministrative investigation. *( a(ter
s%c$ investigation t$e c$arges are establis$e! an! t$e
&erson investigate! is (o%n! g%ilt' o( acts ,arranting $is
removal t$en $e is remove! or !ismisse!. 2$is is t$e
&enalt'. 2$ere is t$ere(ore not$ing im&ro&er in s%s&en!ing
an o((icer &en!ing $is investigation an! be(ore t$e c$arges
against $im are $ear! an! be given an o&&ort%nit' to &rove
$is innocence.
#(ter a care(%l an! $onest scr%tin' o( t$e evi!ence
s%bmitte! on recor! at t$is stage it is t$e $ol!ing o( t$is
o((ice t$at t$e evi!ence o( g%ilt against t$e res&on!ents in
t$e instant case is strong. 2$ere is no .%estion t$at t$e
c$arge against t$e res&on!ents involves !is$onest' or gross
miscon!%ct ,$ic$ ,o%l! ,arrant t$eir removal (rom t$e
service an! t$ere is no gainsa'ing t$e (act t$at t$e c$arge
(or (alsi(ication o( veritable !oc%ments li+e cit' or!inances
are ver' serio%s c$arges t$at a((ect t$e ver' (o%n!ations o(
!%l' establis$e! re&resentative governments. Finall' it is
li+e,ise t$e $ol!ing o( t$is o((ice at t$is stage t$at t$e
contin%e! sta' in o((ice o( res&on!ents ma' &re9%!ice t$e
9%!icio%s investigation an! resol%tion o( t$e instant case.
/. 6ON res&on!ent o((icialHs &etition (or &ro$ibition being an
a&&lication (or reme!' against t$e (in!ings o( &etitioner
containe! in $is /1 )e&tember 188/ or!er s$o%l! not $ave
been entertaine! b' t$e trial co%rt.
2$e &roscri&tion in )ection 10 o( -.#. No. G775 rea!s: )ec.
10. -estrictions. S No ,rit o( in9%nction s$all be iss%e! b'
an' co%rt to !ela' an investigation being con!%cte! b' t$e
Omb%!sman %n!er t$is #ct %nless t$ere is a &rima (acie
evi!ence t$at t$e s%b9ect matter o( t$e investigation is
o%tsi!e t$e 9%ris!iction o( t$e O((ice o( t$e Omb%!sman.
No co%rt s$all $ear an' a&&eal or a&&lication (or reme!'
against t$e !ecision or (in!ings o( t$e Omb%!sman e4ce&t
t$e )%&reme Co%rt on &%re .%estion o( la,.
)ection /7 o( t$e la, ,$ic$ &rescribes a !irect reco%rse to
t$is Co%rt on matters involving or!ers arising (rom
a!ministrative !isci&linar' cases originating (rom t$e O((ice
o( t$e Omb%!smanA t$%s: *n all a!ministrative !isci&linar'
cases or!ers !irectives or !ecisions o( t$e O((ice o( t$e
Omb%!sman ma' be a&&eale! to t$e )%&reme Co%rt b'
(iling a &etition (or certiorari ,it$in ten ;15< !a's (rom
recei&t o( t$e ,ritten notice o( t$e or!er !irective or
!ecision or !enial o( t$e motion (or reconsi!eration in
accor!ance ,it$ -%le 0C o( t$e -%les o( Co%rt.
(alalima v. Guingona /supra- see p. 0D51
Grego v. COM%L%C
Facts: On October 11 1881 Basco ,as remove! (rom $is &osition
as De&%t' )$eri(( b' no less t$an t$is Co%rt %&on a (in!ing o(
serio%s miscon!%ct in an a!ministrative com&laint lo!ge! b' a
certain Nena 2or!esillas. )%bse.%entl' Basco ran as a can!i!ate
(or Co%ncilor in t$e )econ! District o( t$e Cit' o( Manila !%ring t$e
7an%ar' 18 1888 local elections. He ,on an! accor!ingl'
ass%me! o((ice. #(ter $is term Basco so%g$t reDelection in t$e Ma'
11 188/ s'nc$roniBe! national elections. #gain $e s%ccee!e! in
$is bi! an! $e ,as electe! as one o( t$e si4 ;G< Cit' Co%ncilors.
Ho,ever $is victor' t$is time !i! not remain %nc$allenge!. *n t$e
mi!st o( $is s%ccess(%l reDelection $e (o%n! $imsel( besiege! b'
la,s%its o( $is o&&onents in t$e &olls ,$o ,ante! to !islo!ge $im
(rom $is &osition. #ll t$ese c$allenges ,ere $o,ever !ismisse!
t$%s &aving t$e ,a' (or BascoHs contin%e! sta' in o((ice. Des&ite
t$e o!!s &revio%sl' enco%ntere! Basco remaine! %n!a%nte! an!
ran again (or co%ncilor in t$e Ma' 8 188C local elections see+ing a
t$ir! an! (inal term. Once again $e beat t$e o!!s b' emerging
si4t$ in a battle (or si4 co%ncilor seats. #s in t$e &ast $o,ever $is
rig$t to o((ice ,as again conteste!. On Ma' 11 188C &etitioner
Grego claiming to be a registere! voter o( =recinct No. 8GG
District ** Cit' o( Manila (ile! ,it$ t$e COM3L3C a &etition (or
!is.%ali(ication &ra'ing (or BascoHs !is.%ali(ication (or t$e
s%s&ension o( $is &roclamation an! (or t$e !eclaration o(
-om%al!o ). Maranan as t$e si4t$ !%l' electe! Co%ncilor o(
/05
ManilaHs )econ! District. On t$e same !a' t$e C$airman o( t$e
Manila Cit' Boar! o( Canvassers ;BOC< ,as !%l' (%rnis$e! ,it$ a
co&' o( t$e &etition. 2$e ot$er members o( t$e BOC learne! abo%t
t$is &etition onl' t,o !a's later. 2$e COM3L3C con!%cte! a $earing
o( t$e case on Ma' 10 188C ,$ere it or!ere! t$e &arties to s%bmit
sim%ltaneo%sl' t$eir res&ective memoran!a. Be(ore t$e &arties
co%l! com&l' ,it$ t$is !irective $o,ever t$e Manila Cit' BOC
&roclaime! Basco on Ma' 17 188C as a !%l' electe! co%ncilor (or
t$e )econ! District o( Manila &lacing si4t$ among several
can!i!ates ,$o vie! (or t$e seats. Basco imme!iatel' too+ $is oat$
o( o((ice be(ore t$e Honorable Ma. -%b' Bit$aoDCamarista
=resi!ing 7%!ge Metro&olitan 2rial Co%rt Branc$ * Manila. *n vie,
o( s%c$ &roclamation &etitioner lost no time in (iling an @rgent
Motion see+ing to ann%l ,$at $e consi!ere! to be an illegal an!
$ast' &roclamation ma!e on Ma' 17 188C b' t$e Manila Cit' BOC.
He reiterate! BascoHs !is.%ali(ication an! &ra'e! ane, t$at
can!i!ate -om%al!o ). Maranan be !eclare! t$e ,inner. #s
e4&ecte! Basco co%ntere! sai! motion b' (iling $is @rgent
O&&osition to: @rgent Motion ;,it$ -eservation to )%bmit #ns,er
an!?or Motion to Dismiss #gainst *nstant =etition (or Dis.%ali(ication
,it$ 2em&orar' -estraining Or!er<. On 7%ne C 188C Basco (ile! $is
Motion to Dismiss )erving #s #ns,er &%rs%ant to t$e reservation $e
ma!e earlier. #(ter t$e &artiesH res&ective memoran!a $a! been
(ile! t$e COM3L3CHs First Division resolve! to !ismiss t$e &etition
(or !is.%ali(ication on October G 188C r%ling t$at "t$e
a!ministrative &enalt' im&ose! b' t$e )%&reme Co%rt on
res&on!ent Basco on October 11 1881 ,as ,i&e! a,a' an!
con!one! b' t$e electorate ,$ic$ electe! $im" an! t$at on acco%nt
o( BascoHs &roclamation on Ma' 17 188C as t$e si4t$ !%l' electe!
co%ncilor o( t$e )econ! District o( Manila "t$e &etition ,o%l! no
longer be viable." M- !enie! b' COM3L3C en banc. Hence t$is
&etition.
*ss%es: 1. 6ON )ection 05 ;b< o( -e&%blic #ct No. 71G5 a&&l'
retroactivel' to t$ose remove! (rom o((ice be(ore it too+ e((ect on
7an%ar' 1 188/
)3C. 05. Dis.%ali(ications. S 2$e (ollo,ing &ersons are
!is.%ali(ie! (rom r%nning (or an' elective local &osition ;b<
2$ose remove! (rom o((ice as a res%lt o( an a!ministrative
case.
O%r re(%sal to give retroactive a&&lication to t$e &rovision o(
)ection 05 ;b< is alrea!' a settle! iss%e an! t$ere e4ist no
com&elling reasons (or %s to !e&art t$ere(rom. 6ellDsettle!
is t$e &rinci&le t$at ,$ile t$e Legislat%re $as t$e &o,er to
&ass retroactive la,s ,$ic$ !o not im&air t$e obligation o(
contracts or a((ect in9%rio%sl' veste! rig$ts it is e.%all'
tr%e t$at stat%tes are not to be constr%e! as inten!e! to
$ave a retroactive e((ect so as to a((ect &en!ing
&rocee!ings %nless s%c$ intent is e4&ressl' !eclare! or
clearl' an! necessaril' im&lie! (rom t$e lang%age o( t$e
enactment. 2$ere is no &rovision in t$e stat%te ,$ic$ ,o%l!
clearl' in!icate t$at t$e same o&erates retroactivel'.
/. 6ON &rivate res&on!entHs election to o((ice as Cit'
Co%ncilor o( Manila in t$e 1888 188/ an! 188C elections
,i&e a,a' an! con!one t$e a!ministrative &enalt' against
$im t$%s restoring $is eligibilit' (or &%blic o((ice.
#t (irst glance t$ere seems to be a &rima (acie semblance
o( merit to &etitionerHs arg%ment. Ho,ever t$e iss%e o(
,$et$er or not BascoHs tri&le election to o((ice c%re! $is
allege! ineligibilit' is act%all' besi!e t$e &oint beca%se t$e
arg%ment &rocee!s on t$e ass%m&tion t$at $e ,as in t$e
(irst &lace !is.%ali(ie! ,$en $e ran in t$e t$ree &revio%s
elections. 2$is ass%m&tion o( co%rse is %ntenable
consi!ering t$at Basco ,as NO2 s%b9ect to an'
!is.%ali(ication at all %n!er )ection 05 ;b< o( t$e LGC ,$ic$
as ,e sai! earlier a&&lies onl' to t$ose remove! (rom o((ice
on or a(ter 7an%ar' 1 188/. *n vie, o( t$e irrelevance o( t$e
iss%e &ose! b' &etitioner t$ere is no more reason (or t$e
Co%rt to still !,ell on t$e matter at lengt$.
/. 6ON Basco circ%mvente! t$e &ro$ibition in 2or!esillas
against reinstatement to an' &osition in t$e national or local
government incl%!ing its agencies an! instr%mentalities as
,ell as governmentDo,ne! or controlle! cor&orations.
2$e 2or!esillas !ecision !i! not bar Basco (rom r%nning (or
an' elective &osition. #s can be gleane! (rom t$e !ecretal
&ortion o( t$e sai! !ecision t$e Co%rt co%c$e! t$e
&ro$ibition in t$is ,ise:
*n t$is regar! &artic%lar attention is !irecte! to t$e %se o(
t$e term "reinstatement. " @n!er t$e (ormer Civil )ervice
Decree 1G t$e la, a&&licable at t$e time Basco a &%blic
o((icer ,as a!ministrativel' !ismisse! (rom o((ice t$e term
"reinstatement" $a! a tec$nical meaning re(erring onl' to
an a&&ointive &osition. 2$%s: )3C. /0. =ersonnel #ctions.
;!< -einstatement. S #n' &erson ,$o $as been
/01
&ermanentl' #==O*N23D to a &osition in t$e career service
an! ,$o $as t$ro%g$ no !elin.%enc' or miscon!%ct been
se&arate! t$ere(rom ma' be reinstate! to a &osition in t$e
same level (or ,$ic$ $e is .%ali(ie!.
2$e -%les on =ersonnel #ctions an! =olicies iss%e! b' t$e
Civil )ervice Commission on November 15 187C 17
&rovi!es a clearer !e(inition. *t rea!s: )3C. 7. -einstatement
is t$e -3#==O*N2M3N2 o( a &erson ,$o ,as &revio%sl'
se&arate! (rom t$e service t$ro%g$ no !elin.%enc' or
miscon!%ct on $is &art (rom a &osition in t$e career service
to ,$ic$ $e ,as &ermanentl' a&&ointe! to a &osition (or
,$ic$ $e is .%ali(ie!."
*n lig$t o( t$ese !e(initions t$ere is t$ere(ore no basis (or
$ol!ing t$at Basco is li+e,ise barre! (rom r%nning (or an
elective &osition inasm%c$ as ,$at is contem&late! b' t$e
&ro$ibition in 2or!esillas is reinstatement to an a&&ointive
&osition.
/. 6ON &rivate res&on!entHs &roclamation as si4t$ ,inning
can!i!ate on Ma' 17 188C ,$ile t$e !is.%ali(ication case
,as still &en!ing consi!eration b' COM3L3C voi! ab initio.
)ection /5 &aragra&$ ;i< o( -e&. #ct 71GG rea!s: ;i< 2$e
boar! o( canvassers s$all not &roclaim an' can!i!ate as
,inner %nless a%t$oriBe! b' t$e Commission a(ter t$e latter
$as r%le! on t$e ob9ections bro%g$t to it on a&&eal b' t$e
losing &art'. #n' &roclamation ma!e in violation $ereo( s$all
be voi! ab initio %nless t$e conteste! ret%rns ,ill not
a!versel' a((ect t$e res%lts o( t$e election.
2$e ina&&licabilit' o( t$e abovementione! &rovision to t$e
&resent case is ver' m%c$ &atent on its (ace consi!ering
t$at t$e same re(ers onl' to a voi! &roclamation in relation
to conteste! ret%rns an! NO2 to conteste! .%ali(ications o(
a can!i!ate.
)ection G o( -e&. #ct GG0G ,$ic$ states: 3((ect o(
Dis.%ali(ication Case. S #n' can!i!ate ,$o $as been
!eclare! b' (inal 9%!gment to be !is.%ali(ie! s$all not be
vote! (or an! t$e votes cast (or $im s$all not be co%nte!. *(
(or an' reason a can!i!ate is not !eclare! b' (inal
9%!gment be(ore an election to be !is.%ali(ie! an! $e is
vote! (or an! receives t$e ,inning n%mber o( votes in s%c$
election t$e Co%rt or Commission s$all contin%e ,it$ t$e
trial an! $earing o( t$e action in.%ir' or &rotest an! %&on
motion o( t$e com&lainant or an' intervenor ma' !%ring t$e
&en!enc' t$ereo( or!er t$e s%s&ension o( t$e &roclamation
o( s%c$ can!i!ate ,$enever t$e evi!ence o( $is g%ilt is
strong."
2$is &rovision $o,ever !oes not s%&&ort &etitionerHs
contention t$at t$e COM3L3C or more &ro&erl' s&ea+ing
t$e Manila Cit' BOC s$o%l! $ave s%s&en!e! t$e
&roclamation. 2$e %se o( t$e ,or! "ma'" in!icates t$at t$e
s%s&ension o( a &roclamation is merel' !irector' an!
&ermissive in nat%re an! o&erates to con(er !iscretion. 6$at
is merel' ma!e man!ator' accor!ing to t$e &rovision itsel(
is t$e contin%ation o( t$e trial an! $earing o( t$e action
in.%ir' or &rotest. 2$%s in vie, o( t$is !iscretion grante! to
t$e COM3L3C t$e .%estion o( ,$et$er or not evi!ence o(
g%ilt is so strong as to ,arrant s%s&ension o( &roclamation
m%st be le(t (or its o,n !etermination an! t$e Co%rt cannot
inter(ere t$ere,it$ an! s%bstit%te its o,n 9%!gment %nless
s%c$ !iscretion $as been e4ercise! ,$imsicall' an!
ca&ricio%sl'. 2$e COM3L3C as an a!ministrative agenc'
an! a s&ecialiBe! constit%tional bo!' c$arge! ,it$ t$e
en(orcement an! a!ministration o( all la,s an! reg%lations
relative to t$e con!%ct o( an election &lebiscite initiative
re(eren!%m an! recall $as more t$an eno%g$ e4&ertise in
its (iel! t$at its (in!ings or concl%sions are generall'
res&ecte! an! even given (inalit'. 2$e COM3L3C $as not
(o%n! an' gro%n! to s%s&en! t$e &roclamation an! t$e
recor!s li+e,ise (ail to s$o, an' so as to ,arrant a !i((erent
concl%sion (rom t$is Co%rt. Hence t$ere is no am&le
9%sti(ication to $ol! t$at t$e COM3L3C gravel' ab%se! its
!iscretion.
)ection C -%le /C o( t$e COM3L3C -%les o( =roce!%re /C
states t$at: 3((ect o( &etition i( %nresolve! be(ore
com&letion o( canvass. S . . . ;H<is &roclamation s$all be
s%s&en!e! not,it$stan!ing t$e (act t$at $e receive! t$e
,inning n%mber o( votes in s%c$ election.
Ho,ever being merel' an im&lementing r%le t$e same
m%st not overri!e b%t instea! remain consistent ,it$ an! in
$armon' ,it$ t$e la, it see+s to a&&l' an! im&lement.
#!ministrative r%les an! reg%lations are inten!e! to carr'
o%t neit$er to s%&&lant nor to mo!i(' t$e la,.
Moreover t$ere is no reason ,$' t$e Manila Cit' BOC
s$o%l! not $ave &roclaime! Basco as t$e si4t$ ,inning Cit'
Co%ncilor. #bsent an' !etermination o( irreg%larit' in t$e
/0/
election ret%rns as ,ell as an or!er en9oining t$e
canvassing an! &roclamation o( t$e ,inner it is a
man!ator' an! ministerial !%t' o( t$e Boar! o( Canvassers
concerne! to co%nt t$e votes base! on s%c$ ret%rns an!
!eclare t$e res%lt. 2$is $as been t$e r%le as earl' as in t$e
case o( DiBon v. =rovincial Boar! o( Canvassers o( Lag%na /8
,$ere ,e clari(ie! t$e nat%re o( t$e (%nctions o( t$e Boar!
o( Canvassers viB.: "2$e sim&le &%r&ose an! !%t' o( t$e
canvassing boar! is to ascertain an! !eclare t$e a&&arent
res%lt o( t$e voting. #ll ot$er .%estions are to be trie!
be(ore t$e co%rt or ot$er trib%nal (or contesting elections or
in .%o ,arranto &rocee!ings. "
Finall' t$e cases o( D%rem!es Benito an! #g%am s%&ra
cite! b' &etitioner are all irrelevant an! ina&&licable to t$e
(act%al circ%mstances at bar an! serve no ot$er &%r&ose
t$an to m%!!le t$e real iss%e. 2$ese t$ree cases !o not in
an' manner re(er to voi! &roclamations res%lting (rom t$e
mere &en!enc' o( a !is.%ali(ication case.
*n D%rem!es t$e &roclamation ,as !eeme! voi! ab initio
beca%se t$e same ,as ma!e contrar' to t$e &rovisions o(
t$e Omnib%s 3lection Co!e regar!ing t$e s%s&ension o(
&roclamation in cases o( conteste! election ret%rns.
*n Benito t$e &roclamation o( &etitioner Benito ,as
ren!ere! ine((ective !%e to t$e Boar! o( CanvassersH
violation o( its ministerial !%t' to &roclaim t$e can!i!ate
receiving t$e $ig$est n%mber o( votes an! &ave t$e ,a' to
s%ccession in o((ice. *n sai! case t$e can!i!ate receiving
t$e $ig$est n%mber o( votes (or t$e ma'oralt' &osition !ie!
b%t t$e Boar! o( Canvassers instea! o( &roclaiming t$e
!ecease! can!i!ate ,inner !eclare! Benito a mere
secon!D&lacer t$e ma'or.
Lastl' in #g%am t$e n%lli(ication o( t$e &roclamation
&rocee!e! (rom t$e (act t$at it ,as base! onl' on a!vance!
co&ies o( election ret%rns ,$ic$ %n!er t$e la, t$en
&revailing co%l! not $ave been a &ro&er an! legal basis (or
&roclamation.
/. 6ON -om%al!o ). Maranan a sevent$ &lacer be legall'
!eclare! a ,inning can!i!ate.
Obvio%sl' $e ma' not be !eclare! a ,inner. *n t$e (irst
&lace Basco ,as a !%l' .%ali(ie! can!i!ate &%rs%ant to o%r
!is.%isition above. F%rt$ermore $e clearl' receive! t$e
,inning n%mber o( votes ,$ic$ &%t $im in si4t$ &lace. 2$e
e4ce&tion is &re!icate! on t$e conc%rrence o( t,o
ass%m&tions namel': ;1< t$e one ,$o obtaine! t$e $ig$est
n%mber o( votes is !is.%ali(ie!A an! ;/< t$e electorate is
(%ll' a,are in (act an! in la, o( a can!i!ateHs
!is.%ali(ication so as to bring s%c$ a,areness ,it$in t$e
realm o( notoriet' b%t ,o%l! nonet$eless cast t$eir votes in
(avor o( t$e ineligible can!i!ate. Bot$ ass%m&tions
$o,ever are absent in t$is case. =etitionerHs allegation t$at
Basco ,as ,ellD+no,n to $ave been !is.%ali(ie! in t$e small
comm%nit' ,$ere $e ran as a can!i!ate is &%rel'
s&ec%lative an! con9ect%ral %ns%&&orte! as it is b' an'
convincing (acts o( recor! to s$o, notoriet' o( $is allege!
!is.%ali(ication.
+oson v. %xecutive (ecretar# 'orres
Facts: On )e&tember 17 188G &rivate res&on!ents (ile! ,it$ t$e
O((ice o( t$e =resi!ent a letterDcom&laint !ate! )e&tember 11
1887 c$arging &etitioner ,it$ grave miscon!%ct an! ab%se o(
a%t$orit'. =rivate res&on!ents allege! t$at in t$e morning o(
)e&tember 1/ 188G t$e' ,ere at t$e session $all o( t$e &rovincial
ca&itol (or a sc$e!%le! session o( t$e )angg%niang =anlala,igan
,$en &etitioner belligerentl' barge! into t$e HallA &etitioner angril'
+ic+e! t$e !oor an! c$airs in t$e Hall an! %ttere! t$reatening
,or!s at t$emA close be$in! &etitioner ,ere several men ,it$ long
an! s$ort (irearms ,$o encircle! t$e area. =rivate res&on!ents
claim t$at t$is inci!ent ,as an o((s$oot o( t$eir resistance to a
&en!ing legislative meas%re s%&&orte! b' &etitioner t$at t$e
&rovince o( N%eva 3ci9a obtain a loan o( =1C5 million (rom t$e
=$ili&&ine National Ban+A t$at &etitionerHs acts ,ere inten!e! to
$arass t$em into a&&roving t$is loanA t$at (ort%natel' no session
o( t$e )angg%niang =anlala,igan ,as $el! t$at !a' (or lac+ o(
.%or%m an! t$e &ro&ose! legislative meas%re ,as not consi!ere!A
t$at &rivate res&on!ents o&&ose! t$e loan beca%se t$e &rovince o(
N%eva 3ci9a $a! an %nli.%i!ate! obligation o( more t$an =75 million
inc%rre! ,it$o%t &rior a%t$oriBation (rom t$e )angg%niang
=anlala,iganA t$at t$e &rovincial b%!get o((icer an! treas%rer $a!
earlier !isclose! t$at t$e &rovince co%l! not a((or! to contract
anot$er obligationA t$at &etitionerHs act o( barging in an!
intimi!ating &rivate res&on!ents ,as a serio%s ins%lt to t$e
integrit' an! in!e&en!ence o( t$e )angg%niang =anlala,iganA an!
t$at t$e &resence o( $is &rivate arm' &ose! grave !anger to
/01
&rivate res&on!entsH lives an! sa(et'. =rivate res&on!ents &ra'e!
(or t$e s%s&ension or removal o( &etitionerA (or an emergenc' a%!it
o( t$e &rovincial treas%r' o( N%eva 3ci9aA an! (or t$e revie, o( t$e
&ro&ose! loan in lig$t o( t$e (inancial con!ition o( t$e &rovince.
=resi!ent -amos note! t$at t$e sit%ation o( "1/ )e& at t$e )ession
Hall" i.e. t$e re(%sal o( t$e members o( t$e )angg%niang
=anlala,igan to a&&rove t$e &ro&ose! loan !i! not a&&ear to
9%sti(' "t$e %se o( (orce intimi!ation or arme! (ollo,ers." He t$%s
instr%cte! t$e t$en )ecretar' o( t$e *nterior an! Local Governments
;)*LG< -obert Barbers to "UtVa+e a&&ro&riate &reem&tive an!
investigative actions" b%t to "UbVrea+ not t$e &eace." #cting %&on
t$e instr%ctions o( t$e =resi!ent )ecretar' Barbers noti(ie!
&etitioner o( t$e case against $im an! attac$e! to t$e notice a co&'
o( t$e com&laint an! its anne4es. *n t$e same notice )ecretar'
Barbers !irecte! &etitioner "to s%bmit U$isV veri(ie!?s,orn ans,er
t$ereto not a motion to !ismiss toget$er ,it$ s%c$ !oc%mentar'
evi!ence t$at U$eV $as in s%&&ort t$ereo( ,it$in (i(teen ;1C< !a's
(rom recei&t." *mme!iatel' t$erea(ter )ecretar' Barbers
&rocee!e! to N%eva 3ci9a an! s%mmone! &etitioner an! &rivate
res&on!ents to a con(erence to settle t$e controvers'. 2$e &arties
entere! into an agreement ,$ereb' &etitioner &romise! to
maintain &eace an! or!er in t$e &rovince ,$ile &rivate res&on!ents
&romise! to re(rain (rom (iling cases t$at ,o%l! a!versel' a((ect
t$eir &eace(%l coDe4istence. 2$e &eace agreement ,as not
res&ecte! b' t$e &arties an! t$e &rivate res&on!ents reiterate!
t$eir letterDcom&laint. =etitioner ,as again or!ere! to (ile $is
ans,er to t$e letterDcom&laint ,it$in (i(teen !a's (rom recei&t.
=etitioner receive! a co&' o( t$is or!er on November 11 188G. On
#&ril // 1887 @n!ersecretar' Man%el )anc$eB t$en #cting
)ecretar' o( t$e D*LG iss%e! an or!er !eclaring &etitioner in
!e(a%lt an! to $ave ,aive! $is rig$t to &resent evi!ence. =rivate
res&on!ents ,ere or!ere! to &resent t$eir evi!ence e4D&arte. 2,o
!a's later on #&ril /0 1887 t$e la, (irm o( =a!illa 7imeneB
Mintanar P #s%ncion re&resenting &etitioner (ile! ,it$ t$e D*LG an
"3ntr' o( #&&earance ,it$ Motion (or 2ime to File #ns,er #!
Ca%telam." =etitioner receive! a co&' o( t$e or!er o( !e(a%lt on
Ma' / 1887. 2$ro%g$ co%nsel $e move! (or reconsi!eration. On
Ma' 18 1887 @n!ersecretar' )anc$eB reconsi!ere! t$e or!er o(
!e(a%lt in t$e interest o( 9%stice. He note! t$e a&&earance o(
&etitionerHs co%nsel an! gave &etitioner "(or t$e last time" (i(teen
;1C< !a's (rom recei&t to (ile $is ans,er. On 7%ne /1 1887
@n!ersecretar' )anc$eB iss%e! an or!er stating t$at &etitionerHs
co%nsel ,$ose o((ice is in Manila s$o%l! $ave receive! a co&' o(
)ince &etitioner still (aile! to (ile $is ans,er $e ,as !eeme! to
$ave ,aive! $is rig$t to &resent evi!ence in $is be$al(.
@n!ersecretar' )anc$eB reinstate! t$e or!er o( !e(a%lt an!
!irecte! &rivate res&on!ents to &resent t$eir evi!ence e4D&arte on
7%l' 1C 1887. 2$e (ollo,ing !a' 7%ne /0 1887 &etitioner t$ro%g$
co%nsel (ile! a "Motion to Dismiss." =etitioner allege! t$at t$e
letterDcom&laint ,as not veri(ie! on t$e !a' it ,as (ile! ,it$ t$e
O((ice o( t$e =resi!entA an! t$at t$e D*LG $a! no 9%ris!iction over
t$e case an! no a%t$orit' to re.%ire $im to ans,er t$e com&laint.
On 7%l' 0 1887 &etitioner (ile! an "@rgent 34D=arte Motion (or
-econsi!eration" o( t$e or!er o( 7%ne /1 1887 reinstating t$e or!er
o( !e(a%lt. =etitioner also &ra'e! t$at t$e $earing on t$e merits o(
t$e case be $el! in abe'ance %ntil a(ter t$e "Motion to Dismiss"
s$all $ave been resolve!. On 7%l' 11 1887 on recommen!ation o(
)ecretar' Barbers 34ec%tive )ecretar' -%ben 2orres iss%e! an
or!er b' a%t$orit' o( t$e =resi!ent &lacing &etitioner %n!er
&reventive s%s&ension (or si4t' ;G5< !a's &en!ing investigation o(
t$e c$arges against $im. )ecretar' Barbers !irecte! t$e =$ili&&ine
National =olice to assist in t$e im&lementation o( t$e or!er o(
&reventive s%s&ension. *n &etitionerHs stea! )ecretar' Barbers
!esignate! KiceDGovernor Oscar 2inio as #cting Governor %ntil s%c$
time as &etitionerHs tem&orar' legal inca&acit' s$all $ave cease! to
e4ist. Fort$,it$ &etitioner (ile! a &etition (or certiorari an!
&ro$ibition ,it$ t$e Co%rt o( #&&eals c$allenging t$e or!er o(
&reventive s%s&ension an! t$e or!er o( !e(a%lt. Mean,$ile t$e
&rocee!ings be(ore t$e D*LG contin%e!. On #%g%st /5 1887
@n!ersecretar' )anc$eB iss%e! an or!er !en'ing &etitionerHs
"Motion to Dismiss" an! "@rgent 34D=arte Motion (or
-econsi!eration." *n t$e same or!er $e re.%ire! t$e &arties to
s%bmit t$eir &osition &a&ers ,it$in an ine4ten!ible &erio! o( ten
!a's (rom recei&t a(ter ,$ic$ t$e case s$all be !eeme! s%bmitte!
(or resol%tion. On #%g%st /7 1887 &etitioner (ile! ,it$ t$e D*LG a
"Motion to Li(t Or!er o( =reventive )%s&ension." On )e&tember 15
1887 &etitioner (ollo,e! t$is ,it$ a "Motion to Li(t De(a%lt Or!er
an! #!mit #ns,er #! Ca%telam."U/1V #ttac$e! to t$e motion ,as
t$e "#ns,er #! Ca%telam"U//V an! s,orn statements o( $is
,itnesses. On t$e ot$er $an! com&lainants ;&rivate res&on!ents
$erein< mani(este! t$at t$e' ,ere s%bmitting t$e case (or !ecision
base! on t$e recor!s t$e com&laint an! a((i!avits o( t$eir
,itnesses. *n $is #ns,er #! Ca%telam &etitioner allege! t$at in t$e
morning o( )e&tember 1/ 188G ,$ile $e ,as at $is !istrict o((ice
in t$e to,n o( M%noB $e receive! a &$one call (rom )angg%niang
/00
=anlala,igan member 7ose !el M%n!o. Del M%n!o ,$o belonge!
to &etitionerHs &olitical &art' in(orme! $im t$at KiceDGovernor 2inio
,as enrage! at t$e members o( t$e )angg%niang =anlala,igan
,$o ,ere in &etitionerHs &art' beca%se t$e' re(%se! to &lace on t$e
agen!a t$e rati(ication o( t$e &ro&ose! =1C5 million loan o( t$e
&rovince. =etitioner re&aire! to t$e &rovincial ca&itol to a!vise $is
&art'Dmates on t$eir &roblem an! at t$e same time atten! to $is
o((icial (%nctions. @&on arrival $e ,ent to t$e )ession Hall an!
as+e! t$e members &resent ,$ere KiceDGovernor 2inio ,as.
Ho,ever ,it$o%t ,aiting (or t$eir re&l' $e le(t t$e Hall an!
&rocee!e! to $is o((ice. =etitioner claime! t$at t$ere ,as not$ing in
$is con!%ct t$at t$reatene! t$e members o( t$e )angg%niang
=anlala,igan or ca%se! alarm to t$e em&lo'ees. He sai! t$at li+e
KiceDGovernor 2inio $e ,as al,a's accom&anie! b' $is o((icial
sec%rit' escorts ,$enever $e re&orte! (or ,or+. He also allege!
t$at t$e 9oint a((i!avit o( 3lnora 3scombien an! 7ac.%eline 7ane
=ereB ,as (alse. 3scombien ,as &%r&orte!l' not insi!e t$e session
$all !%ring t$e inci!ent b%t ,as at $er !es+ at t$e o((ice an! co%l!
not in an' ,a' $ave seen &etitioner in t$e $all. 2o attest to t$e
tr%t$ o( $is allegations &etitioner s%bmitte! t$ree ;1< 9oint
a((i!avits DD t,o ;/< a((i!avits e4ec%te! b' si4 ;G< an! ten ;15<
em&lo'ees res&ectivel' o( t$e &rovincial government an! a t$ir!
b' (o%r members o( t$e )angg%niang =anlala,igan. On )e&tember
11 1887 &etitioner (ile! an "@rgent Motion (or -econsi!eration" o(
t$e or!er o( #%g%st /5 1887 !en'ing $is motion to !ismiss. 2$e
"@rgent Motion (or -econsi!eration" ,as re9ecte! b'
@n!ersecretar' )anc$eB on October 8 1887. @n!ersecretar'
)anc$eB $o,ever grante! t$e "Motion to Li(t De(a%lt Or!er an! to
#!mit #ns,er #! Ca%telam" an! a!mitte! t$e "#ns,er #!
Ca%telam" as &etitionerHs &osition &a&er &%rs%ant to t$e or!er o(
#%g%st /5 1887. On October 1C 1887 &etitioner (ile! a "Motion to
Con!%ct Formal *nvestigation." =etitioner &ra'e! t$at a (ormal
investigation o( $is case be con!%cte! &%rs%ant to t$e &rovisions o(
t$e LGC o( 1881 an! -%le 7 o( #!ministrative Or!er No. /1A an!
t$at t$is be $el! at t$e &rovince o( N%eva 3ci9a.U/GV On October /8
1887 &etitioner s%bmitte! a "Mani(estation an! Motion" be(ore t$e
D*LG reiterating $is rig$t to a (ormal investigation. *n t$e
meantime on October /0 1887 t$e Co%rt o( #&&eals !ismisse!
&etitionerHs &etition.
*ss%es: 1. 6ON t$e r%les o( &roce!%re an! evi!ence s$o%l! be
strictl' a&&lie! in t$e a!ministrative &rocee!ings.
#n a!ministrative com&laint against an erring elective
o((icial m%st be veri(ie! an! (ile! ,it$ t$e &ro&er
government o((ice. # com&laint against an elective
&rovincial or cit' o((icial m%st be (ile! ,it$ t$e O((ice o( t$e
=resi!ent. # com&laint against an elective m%nici&al o((icial
m%st be (ile! ,it$ t$e )angg%niang =anlala,igan ,$ile t$at
o( a baranga' o((icial m%st be (ile! be(ore t$e )angg%niang
=anl%ngso! or )angg%niang Ba'an.
*n t$e instant case &etitioner 7oson is an elective o((icial o(
t$e &rovince o( N%eva 3ci9a. 2$e letterDcom&laint against
$im ,as t$ere(ore &ro&erl' (ile! ,it$ t$e O((ice o( t$e
=resi!ent. #ccor!ing to &etitioner $o,ever t$e letterD
com&laint (aile! to con(orm ,it$ t$e (ormal re.%irements
set b' t$e Co!e. He alleges t$at t$e com&laint ,as not
veri(ie! b' &rivate res&on!ents an! ,as not s%&&orte! b'
t$e 9oint a((i!avit o( t$e t,o ,itnesses name! t$ereinA t$at
&rivate res&on!ents later realiBe! t$ese !e(ects an!
s%rre&titio%sl' inserte! t$e veri(ication an! s,orn statement
,$ile t$e com&laint ,as still &en!ing ,it$ t$e O((ice o( t$e
=resi!ent.U18V 2o &rove $is allegations &etitioner s%bmitte!:
;a< t$e s,orn statement o( &rivate res&on!ent )olita C.
)antos attesting to t$e allege! (act t$at a(ter t$e letterD
com&laint ,as (ile! KiceDGovernor 2inio ma!e $er an! t$e
ot$er members o( t$e )angg%niang =anlala,igan sign an
a!!itional &age ,$ic$ $e $a! later notariBe!A an! ;b< t$e
(act t$at t$e veri(ication o( t$e letterDcom&laint an! t$e 9oint
a((i!avit o( t$e ,itnesses !o not in!icate t$e !oc%ment
&age or boo+ n%mber o( t$e notarial register o( t$e notar'
&%blic be(ore ,$om t$e' ,ere ma!e.
6e (in! no merit in t$e contention o( t$e &etitioner. 2$e
absence o( t$e !oc%ment &age or boo+ n%mber o( t$e
notarial register o( t$e s%bscribing o((icer is ins%((icient to
&rove &etitionerHs claim. 2$e lac+ o( t$ese entries ma'
constit%te &roo( o( neglect on t$e &art o( t$e s%bscribing
o((icer in com&l'ing ,it$ t$e re.%irements (or notariBation
an! &ro&er veri(ication. 2$e' ma' give gro%n!s (or t$e
revocation o( $is notarial commission.U05V B%t t$e' !o not
in!%bitabl' &rove t$at t$e veri(ication ,as inserte! or
intercalate! a(ter t$e letterDcom&laint ,as (ile! ,it$ t$e
O((ice o( t$e =resi!ent. Nor is t$e (act o( intercalation
s%((icientl' establis$e! b' t$e a((i!avit o( )olita C. )antos.
=rivate res&on!ent )antos ,as one o( t$e signatories to t$e
/0C
letterDcom&laint. *n $er a((i!avit s$e &ra'e! t$at s$e be
!ro&&e! as one o( t$e com&lainants since s$e $a! 9%st
9oine! t$e &olitical &art' o( &etitioner 7oson. )$e !eci!e! to
reveal t$e intercalation beca%se s$e ,as !isill%sione! ,it$
t$e "!irt' tactics" o( KiceDGovernor 2inio to grab &o,er (rom
&etitioner 7oson.U01V =rivate res&on!ent )antos cannot in
an' ,a' be consi!ere! an %nbiase! ,itness. Her motive
an! c$ange o( $eart ren!er $er a((i!avit s%s&ect.
#ss%ming nonet$eless t$at t$e letterDcom&laint ,as
%nveri(ie! ,$en s%bmitte! to t$e O((ice o( t$e =resi!ent t$e
!e(ect ,as not (atal. 2$e re.%irement o( veri(ication ,as
!eeme! ,aive! b' t$e =resi!ent $imsel( ,$en $e acte! on
t$e com&laint.
Keri(ication is a (ormal not 9%ris!ictional re.%isite.
Keri(ication is mainl' inten!e! to sec%re an ass%rance t$at
t$e allegations t$erein ma!e are !one in goo! (ait$ or are
tr%e an! correct an! not mere s&ec%lation. 2$e lac+ o(
veri(ication is a mere (ormal !e(ect. 2$e co%rt ma' or!er t$e
correction o( t$e &lea!ing i( not veri(ie! or act on t$e
%nveri(ie! &lea!ing i( t$e atten!ing circ%mstances are s%c$
t$at a strict com&liance ,it$ t$e r%le ma' be !is&ense! ,it$
in or!er t$at t$e en!s o( 9%stice ma' be serve!.
/. 6ON t$e D*LG )ecretar' $as 9%ris!iction over t$e case.
7%ris!iction over a!ministrative !isci&linar' actions against
elective local o((icials is lo!ge! in t,o a%t$orities: t$e
Disci&lining #%t$orit' an! t$e *nvestigating #%t$orit'. 2$is
is e4&licit (rom #.O. No. /1 to ,it: ")ec. /. Disci&lining
#%t$orit'. #ll a!ministrative com&laints !%l' veri(ie!
against elective local o((icials mentione! in t$e &rece!ing
)ection s$all be acte! %&on b' t$e =resi!ent. 2$e =resi!ent
,$o ma' act t$ro%g$ t$e 34ec%tive )ecretar' s$all
$ereina(ter be re(erre! to as t$e Disci&lining #%t$orit'." )ec.
1. *nvestigating #%t$orit'. 2$e )ecretar' o( t$e *nterior
an! Local Government is $ereb' !esignate! as t$e
*nvestigating #%t$orit'. He ma' constit%te an *nvestigating
Committee in t$e De&artment o( t$e *nterior an! Local
Government (or t$e &%r&ose.2$e Disci&lining #%t$orit' ma'
$o,ever in t$e interest o( t$e service constit%te a )&ecial
*nvestigating Committee in lie% o( t$e )ecretar' o( t$e
*nterior an! Local Government."
=%rs%ant to t$ese &rovisions t$e Disci&lining #%t$orit' is
t$e =resi!ent o( t$e =$ili&&ines ,$et$er acting b' $imsel(
or t$ro%g$ t$e 34ec%tive )ecretar'. 2$e )ecretar' o( t$e
*nterior an! Local Government is t$e *nvestigating #%t$orit'
,$o ma' act b' $imsel( or constit%te an *nvestigating
Committee. 2$e )ecretar' o( t$e D*LG $o,ever is not t$e
e4cl%sive *nvestigating #%t$orit'. *n lie% o( t$e D*LG
)ecretar' t$e Disci&lining #%t$orit' ma' !esignate a
)&ecial *nvestigating Committee.
2$e &o,er o( t$e =resi!ent over a!ministrative !isci&linar'
cases against elective local o((icials is !erive! (rom $is
&o,er o( general s%&ervision over local governments.
)ection 0 #rticle J o( t$e 1887 Constit%tion &rovi!es:")ec.
0. 2$e =resi!ent o( t$e =$ili&&ines s$all e4ercise general
s%&ervision over local governments. =rovinces ,it$ res&ect
to com&onent cities an! m%nici&alities an! cities an!
m%nici&alities ,it$ res&ect to com&onent baranga's s$all
ens%re t$at t$e acts o( t$eir com&onent %nits are ,it$in t$e
sco&e o( t$eir &rescribe! &o,ers an! (%nctions."
2$e &o,er o( s%&ervision means "overseeing or t$e
a%t$orit' o( an o((icer to see t$at t$e s%bor!inate o((icers
&er(orm t$eir !%ties." *( t$e s%bor!inate o((icers (ail or
neglect to (%l(ill t$eir !%ties t$e o((icial ma' ta+e s%c$
action or ste& as &rescribe! b' la, to ma+e t$em &er(orm
t$eir !%ties. 2$e =resi!entHs &o,er o( general s%&ervision
means no more t$an t$e &o,er o( ens%ring t$at la,s are
(ait$(%ll' e4ec%te! or t$at s%bor!inate o((icers act ,it$in
t$e la,. )%&ervision is not incom&atible ,it$ !isci&line. #n!
t$e &o,er to !isci&line an! ens%re t$at t$e la,s be (ait$(%ll'
e4ec%te! m%st be constr%e! to a%t$oriBe t$e =resi!ent to
or!er an investigation o( t$e act or con!%ct o( local o((icials
,$en in $is o&inion t$e goo! o( t$e &%blic service so
re.%ires.
2$e &o,er to !isci&line evi!entl' incl%!es t$e &o,er to
investigate. #s t$e Disci&lining #%t$orit' t$e =resi!ent $as
t$e &o,er !erive! (rom t$e Constit%tion itsel( to investigate
com&laints against local government o((icials. #. O. No. /1
$o,ever !elegates t$e &o,er to investigate to t$e D*LG or
a )&ecial *nvestigating Committee as ma' be constit%te! b'
t$e Disci&lining #%t$orit'. 2$is is not %n!%e !elegation
contrar' to &etitioner 7osonHs claim. 2$e =resi!ent remains
t$e Disci&lining #%t$orit'. 6$at is !elegate! is t$e &o,er to
investigate not t$e &o,er to !isci&line.
/0G
Moreover t$e &o,er o( t$e D*LG to investigate
a!ministrative com&laints is base! on t$e alterDego &rinci&le
or t$e !octrine o( .%ali(ie! &olitical agenc'. 2$%s: @n!er
t$is !octrine ,$ic$ recogniBes t$e establis$ment o( a single
e4ec%tive all e4ec%tive an! a!ministrative organiBations
are a!9%ncts o( t$e 34ec%tive De&artment t$e $ea!s o( t$e
vario%s e4ec%tive !e&artments are assistants an! agents o(
t$e C$ie( 34ec%tive an! e4ce&t in cases ,$ere t$e C$ie(
34ec%tive is re.%ire! b' t$e Constit%tion or la, to act in
&erson or t$e e4igencies o( t$e sit%ation !eman! t$at $e act
&ersonall' t$e m%lti(ario%s e4ec%tive an! a!ministrative
(%nctions o( t$e C$ie( 34ec%tive are &er(orme! b' an!
t$ro%g$ t$e e4ec%tive !e&artments an! t$e acts o( t$e
)ecretaries o( s%c$ !e&artments &er(orme! an!
&rom%lgate! in t$e reg%lar co%rse o( b%siness are %nless
!isa&&rove! or re&robate! b' t$e C$ie( 34ec%tive
&res%m&tivel' t$e acts o( t$e C$ie( 34ec%tive."
2$is !octrine is corollar' to t$e control &o,er o( t$e
=resi!ent.2$e &o,er o( control is &rovi!e! in t$e
Constit%tion t$%s: ")ec. 17. 2$e =resi!ent s$all $ave control
o( all t$e e4ec%tive !e&artments b%rea%s an! o((ices. He
s$all ens%re t$at t$e la,s be (ait$(%ll' e4ec%te!."
Control is sai! to be t$e ver' $eart o( t$e &o,er o( t$e
&resi!enc'. #s $ea! o( t$e 34ec%tive De&artment t$e
=resi!ent $o,ever ma' !elegate some o( $is &o,ers to t$e
Cabinet members e4ce&t ,$en $e is re.%ire! b' t$e
Constit%tion to act in &erson or t$e e4igencies o( t$e
sit%ation !eman! t$at $e acts &ersonall'. 2$e members o(
Cabinet ma' act (or an! in be$al( o( t$e =resi!ent in certain
matters beca%se t$e =resi!ent cannot be e4&ecte! to
e4ercise $is control ;an! s%&ervisor'< &o,ers &ersonall' all
t$e time. 3ac$ $ea! o( a !e&artment is an! m%st be t$e
=resi!entHs alter ego in t$e matters o( t$at !e&artment
,$ere t$e =resi!ent is re.%ire! b' la, to e4ercise a%t$orit'.
6$en an a!ministrative com&laint is t$ere(ore (ile! t$e
Disci&lining #%t$orit' s$all iss%e an or!er re.%iring t$e
res&on!ent to s%bmit $is veri(ie! ans,er ,it$in (i(teen ;1C<
!a's (rom notice. @&on (iling o( t$e ans,er t$e Disci&lining
#%t$orit' s$all re(er t$e case to t$e *nvestigating #%t$orit'
(or investigation.
*n t$e case at bar &etitioner claims t$at t$e D*LG )ecretar'
%s%r&e! t$e &o,er o( t$e =resi!ent ,$en $e re.%ire!
&etitioner to ans,er t$e com&laint. @n!is&%tabl' t$e letterD
com&laint ,as (ile! ,it$ t$e O((ice o( t$e =resi!ent b%t it
,as t$e D*LG )ecretar' ,$o or!ere! &etitioner to ans,er.
)trictl' a&&l'ing t$e r%les t$e O((ice o( t$e =resi!ent !i! not
com&l' ,it$ t$e &rovisions o( #.O. No. /1. 2$e O((ice s$o%l!
$ave (irst re.%ire! &etitioner to (ile $is ans,er. 2$erea(ter
t$e com&laint an! t$e ans,er s$o%l! $ave been re(erre! to
t$e *nvestigating #%t$orit' (or (%rt$er &rocee!ings. Be t$at
as it ma' t$is &roce!%ral la&se is not (atal. 2$e (iling o( t$e
ans,er is necessar' merel' to enable t$e =resi!ent to ma+e
a &reliminar' assessment o( t$e case.UG/V 2$e =resi!ent
(o%n! t$e com&laint s%((icient in (orm an! s%bstance to
,arrant its (%rt$er investigation. 2$e 9%!gment o( t$e
=resi!ent on t$e matter is entitle! to res&ect in t$e absence
o( grave ab%se o( !iscretion.
1. 6ON t$e D*LG erre! in !eclaring $im in !e(a%lt (or (iling a
motion to !ismiss.
*t is tr%e t$at a motion to !ismiss is not a &lea!ing
&ro$ibite! %n!er t$e LGC o( 1881 nor in #.O. No. /1.
=etitioner $o,ever ,as instr%cte! not to (ile a motion to
!ismiss in t$e or!er to (ile ans,er. 2$rice $e re.%este! (or
e4tension o( time to (ile $is ans,er citing as reasons t$e
searc$ (or com&etent co%nsel an! t$e !eman!s o( $is
o((icial !%ties. #n! t$rice $is re.%ests ,ere grante!. 3ven
t$e or!er o( !e(a%lt ,as reconsi!ere! an! &etitioner ,as
given a!!itional time to (ile ans,er. #(ter all t$e re.%ests
an! seven mont$s later $e (ile! a motion to !ismiss.
=etitioner s$o%l! +no, t$at t$e (ormal investigation o( t$e
case is re.%ire! b' la, to be (inis$e! ,it$in one $%n!re!
t,ent' ;1/5< !a's (rom t$e time o( (ormal notice to t$e
res&on!ent. 2$e e4tensions &etitioner re.%este! cons%me!
(i(t'D(ive ;CC< !a's o( t$is &erio!.UG1V =etitioner in (act (ile!
$is ans,er nine ;8< mont$s a(ter t$e (irst notice. *n!ee!
t$is ,as more t$an s%((icient time (or &etitioner to com&l'
,it$ t$e or!er to (ile ans,er.
2$e s&ee!' !is&osition o( a!ministrative com&laints is
re.%ire! b' &%blic service. 2$e e((icienc' o( o((icials %n!er
investigation is im&aire! ,$en a case $angs over t$eir
$ea!s. O((icials !eserve to be cleare! e4&e!itio%sl' i( t$e'
are innocent also e4&e!itio%sl' i( g%ilt' so t$at t$e
b%siness o( government ,ill not be &re9%!ice!.
/07
1. 6ON t$e D*LG erre! in recommen!ing to t$e Disci&lining
#%t$orit' $is &reventive s%s&ension !%ring t$e investigation
in vie, o( 7oson>s ine4c%sable (ail%re to (ile an ans,er.
=reventive s%s&ension is a%t$oriBe! %n!er )ection G1 o( t$e
LGC viB: ;a< =reventive s%s&ension ma' be im&ose!: ;1< B'
t$e =resi!ent i( t$e res&on!ent is an elective o((icial o( a
&rovince a $ig$l' %rbaniBe! or an in!e&en!ent com&onent
cit'A ;b< =reventive s%s&ension ma' be im&ose! at an' time
a(ter t$e iss%es are 9oine! ,$en t$e evi!ence o( g%ilt is
strong an! given t$e gravit' o( t$e o((ense t$ere is great
&robabilit' t$at t$e contin%ance in o((ice o( t$e res&on!ent
co%l! in(l%ence t$e ,itnesses or &ose a t$reat to t$e sa(et'
an! integrit' o( t$e recor!s an! ot$er evi!enceA =rovi!e!
2$at an' single &reventive s%s&ension o( local elective
o((icials s$all not e4ten! be'on! si4t' ;G5< !a's: =rovi!e!
(%rt$er 2$at in t$e event t$at several a!ministrative cases
are (ile! against an elective o((icial $e cannot be
&reventivel' s%s&en!e! (or more t$an ninet' ;85< !a's
,it$in a single 'ear on t$e same gro%n! or gro%n!s e4isting
an! +no,n at t$e time o( t$e (irst s%s&ension.
=reventive s%s&ension ma' be im&ose! b' t$e Disci&lining
#%t$orit' at an' time ;a< a(ter t$e iss%es are 9oine!A ;b<
,$en t$e evi!ence o( g%ilt is strongA an! ;c< given t$e
gravit' o( t$e o((ense t$ere is great &robabilit' t$at t$e
res&on!ent ,$o contin%es to $ol! o((ice co%l! in(l%ence
t$e ,itnesses or &ose a t$reat to t$e sa(et' an! integrit' o(
t$e recor!s an! ot$er evi!ence.
34ec%tive )ecretar' 2orres (o%n! t$at all t$e re.%isites (or
t$e im&osition o( &reventive s%s&ension $a! been com&lie!
,it$. =etitionerHs (ail%re to (ile $is ans,er !es&ite several
o&&ort%nities given $im ,as constr%e! as a ,aiver o( $is
rig$t to (ile ans,er an! &resent evi!enceA an! as a res%lt o(
t$is ,aiver t$e iss%es ,ere !eeme! to $ave been 9oine!.
2$e 34ec%tive )ecretar' also (o%n! t$at t$e evi!ence o(
&etitioner 7osonHs g%ilt ,as strong an! t$at $is contin%ance
in o((ice !%ring t$e &en!enc' o( t$e case co%l! in(l%ence t$e
,itnesses an! &ose a t$reat to t$e sa(et' an! integrit' o(
t$e evi!ence against $im.
1. 6ON t$e 7an%ar' 8 1888 -esol%tion o( t$e 34ec%tive
)ecretar' (in!ing &etitioner g%ilt' as c$arge! an! im&osing
on $im t$e &enalt' o( s%s&ension (rom o((ice (or si4 ;G<
mont$s (rom o((ice ,it$o%t &a' is vali!
=etitioner claims t$at t$e s%s&ension ,as ma!e ,it$o%t
(ormal investigation &%rs%ant to t$e &rovisions o( -%le 7 o(
#.O. No. /1. 6e o((er no ob9ection an! conc%r ,it$ t$e
assertion o( res&on!ent t$at $e $as t$e rig$t (or t$e con!%ct
o( (ormal investigation. Ho,ever be(ore t$ere s$all be a
(ormal investigation 9oin!er o( iss%es m%st alrea!' be
&resent or res&on!entHs ans,er $as alrea!' been (ile!. *n
t$e case at bar t$e a!mission o( res&on!entHs ans,er a(ter
$aving been !eclare! in !e(a%lt ,as con!itione! on t$e (act
o( s%bmission o( &osition &a&ers b' t$e &arties a(ter ,$ic$
t$e case s$all be !eeme! s%bmitte! (or resol%tion.
-es&on!ent instea! o( s%bmitting $is &osition &a&er (ile!
$is s%b9ect motion ,$ile com&lainants mani(este! to (orego
t$e s%bmission o( &osition &a&er an! s%bmit t$e case (or
resol%tion on t$e basis o( t$e &lea!ings on $an!.
)ettle! is t$e r%le t$at in a!ministrative &rocee!ings
tec$nical r%les o( &roce!%re an! evi!ence are not strictl'
a&&lie!. 2$e essence o( !%e &rocess is to be (o%n! in t$e
reasonable o&&ort%nit' to be $ear! an! to s%bmit evi!ence
one ma' $ave in s%&&ort o( oneHs !e(ense. 2o be $ear! !oes
not onl' mean verbal arg%ments in co%rtA one ma' be $ear!
also t$ro%g$ &lea!ings. 6$ere o&&ort%nit' to be $ear!
eit$er t$ro%g$ oral arg%ments or &lea!ings is accor!e!
t$ere is no !enial o( &roce!%ral !%e &rocess. 2$%s ,$en
res&on!ent (aile! to s%bmit $is &osition &a&er as !irecte!
an! insiste! (or t$e con!%ct o( (ormal investigation $e ,as
not !enie! o( $is rig$t o( &roce!%ral &rocess.
2$e recor!s s$o, t$at on #%g%st /7 1887 &etitioner
s%bmitte! $is #ns,er #! Ca%telam ,$ere $e !is&%te! t$e
tr%t$ o( t$e allegations t$at $e barge! into t$e session $all
o( t$e ca&itol an! committe! &$'sical violence to $arass t$e
&rivate res&on!ents ,$o ,ere o&&ose! to an' move (or t$e
&rovince to contract a =1C5 million loan (rom =NB. *n $is
Or!er o( October 8 1887 @n!ersecretar' )anc$eB a!mitte!
&etitionerHs #ns,er #! Ca%telam b%t treate! it as a &osition
&a&er. On October 1C 1887 &etitioner (ile! a Motion to
Con!%ct Formal *nvestigation. =etitioner reiterate! t$is
motion on October /8 1887. =etitionerHs motion ,as !enie!
on November 11 1887. )ecretar' Barbers (o%n! &etitioner
g%ilt' as c$arge! on t$e basis o( t$e &artiesH &osition
&a&ers. On 7an%ar' 8 1888 34ec%tive )ecretar' 2orres
a!o&te! )ecretar' BarbersH (in!ings an! recommen!ations
/08
an! im&ose! on &etitioner t$e &enalt' o( si4 ;G< mont$s
s%s&ension ,it$o%t &a'.
2$e re9ection o( &etitionerHs rig$t to a (ormal investigation
!enie! $im &roce!%ral !%e &rocess. )ection C o( #. O. No.
/1 &rovi!es t$at at t$e &reliminar' con(erence t$e
*nvestigating #%t$orit' s$all s%mmon t$e &arties to consi!er
,$et$er t$e' !esire a (ormal investigation. 2$is &rovision
!oes not give t$e *nvestigating #%t$orit' t$e !iscretion to
!etermine ,$et$er a (ormal investigation ,o%l! be
con!%cte!. 2$e recor!s s$o, t$at &etitioner (ile! a motion
(or (ormal investigation. #s res&on!ent $e is accor!e!
several rig$ts %n!er t$e la, to ,it: ")ec. GC. -ig$ts o(
-es&on!ent. DD 2$e res&on!ent s$all be accor!e! (%ll
o&&ort%nit' to a&&ear an! !e(en! $imsel( in &erson or b'
co%nsel to con(ront an! crossDe4amine t$e ,itnesses
against $im an! to re.%ire t$e atten!ance o( ,itnesses an!
t$e &ro!%ction o( !oc%mentar' evi!ence in $is (avor
t$ro%g$ com&%lsor' &rocess o( s%b&oena or s%b&oena !%ces
tec%m."
#n erring elective local o((icial $as rig$ts a+in to t$e
constit%tional rig$ts o( an acc%se!.2$ese rig$ts are
essentiall' &art o( &roce!%ral !%e &rocess.2$e local elective
o((icial $as t$e ;1< rig$t to a&&ear an! !e(en! $imsel( in
&erson or b' co%nselA ;/< t$e rig$t to con(ront an! crossD
e4amine t$e ,itnesses against $imA an! ;1< t$e rig$t to
com&%lsor' atten!ance o( ,itness an! t$e &ro!%ction o(
!oc%mentar' evi!ence. 2$ese rig$ts are reiterate! in t$e
-%les *m&lementing t$e LGC an! in #.O. No. /1. 6ell to
note &etitioner (ormall' claime! $is rig$t to a (ormal
investigation a(ter $is #ns,er #! Ca%telam $as been
a!mitte! b' @n!ersecretar' )anc$eB.
=etitionerHs rig$t to a (ormal investigation ,as not satis(ie!
,$en t$e com&laint against $im ,as !eci!e! on t$e basis o(
&osition &a&ers. 2$ere is not$ing in t$e LGC an! its
*m&lementing -%les an! -eg%lations nor in #.O. No. /1 t$at
&rovi!e t$at a!ministrative cases against elective local
o((icials can be !eci!e! on t$e basis o( &osition &a&ers. #.O.
No. /1 states t$at t$e *nvestigating #%t$orit' ma' re.%ire
t$e &arties to s%bmit t$eir res&ective memoran!a b%t t$is is
onl' a(ter (ormal investigation an! $earing.U7/V #.O. No. /1
!oes not a%t$oriBe t$e *nvestigating #%t$orit' to !is&ense
,it$ a $earing es&eciall' in cases involving allegations o(
(act ,$ic$ are not onl' in contrast b%t contra!ictor' to eac$
ot$er. 2$ese contra!ictions are best settle! b' allo,ing t$e
e4amination an! crossDe4amination o( ,itnesses. =osition
&a&ers are o(tenDtimes &re&are! ,it$ t$e assistance o(
la,'ers an! t$eir art(%l &re&aration can ma+e t$e !iscover'
o( tr%t$ !i((ic%lt. 2$e 9%ris&r%!ence cite! b' t$e D*LG in its
or!er !en'ing &etitionerHs motion (or a (ormal investigation
a&&lies to a&&ointive o((icials an! em&lo'ees.
#!ministrative !isci&linar' &rocee!ings against elective
government o((icials are not e4actl' similar to t$ose against
a&&ointive o((icials. *n (act t$e &rovisions t$at a&&l' to
elective local o((icials are se&arate an! !istinct (rom
a&&ointive government o((icers an! em&lo'ees. 2$is can be
gleane! (rom t$e LGC itsel(.
2$e &rovisions (or a!ministrative !isci&linar' actions against
elective local o((icials are mar+e!l' !i((erent (rom a&&ointive
o((icials. 2$e r%les on t$e removal an! s%s&ension o(
elective local o((icials are more stringent. 2$e &roce!%re o(
re.%iring &osition &a&ers in lie% o( a $earing in
a!ministrative cases is e4&ressl' allo,e! ,it$ res&ect to
a&&ointive o((icials b%t not to t$ose electe!. #n elective
o((icial electe! b' &o&%lar vote is !irectl' res&onsible to
t$e comm%nit' t$at electe! $im. 2$e o((icial $as a !e(inite
term o( o((ice (i4e! b' la, ,$ic$ is relativel' o( s$ort
!%ration. )%s&ension an! removal (rom o((ice !e(initel'
a((ects an! s$ortens t$is term o( o((ice. 6$en an elective
o((icial is s%s&en!e! or remove! t$e &eo&le are !e&rive! o(
t$e services o( t$e man t$e' $a! electe!. *m&licit in t$e
rig$t o( s%((rage is t$at t$e &eo&le are entitle! to t$e
services o( t$e elective o((icial o( t$eir c$oice. )%s&ension
an! removal are t$%s im&ose! onl' a(ter t$e elective o((icial
is accor!e! $is rig$ts an! t$e evi!ence against $im strongl'
!ictates t$eir im&osition.
Conucto v. Monzon
Facts: On 15 #%g%st 1881 com&lainant (ile! a com&laint ,it$ t$e
)angg%niang =anl%ngso! o( )an =ablo Cit' against Mag$irang t$e
baranga' c$airman o( Baranga' ***D3 o( )an =ablo Cit' (or ab%se o(
a%t$orit' serio%s irreg%larit' an! violation o( la, in t$at among
ot$er t$ings Mag$irang a&&ointe! $is sisterDinDla, Florian to t$e
&osition o( baranga' secretar' on 17 Ma' 1888 in violation o(
/08
)ection 180 o( t$e LGC. #t t$e same time com&lainant (ile! a
com&laint (or violation o( #rticle /00 o( t$e -evise! =enal Co!e ,it$
t$e O((ice o( t$e Cit' =rosec%tor against Mag$irang ,$ic$ ,as
$o,ever !ismisse! on 15 )e&tember 1881 on t$e gro%n! t$at
Mag$irang>s sisterDinDla, ,as a&&ointe! be(ore t$e e((ectivit' o(
t$e LGC o( 1881 ,$ic$ &ro$ibits a &%nong baranga' (rom
a&&ointing a relative ,it$in t$e (o%rt$ civil !egree o( consang%init'
or a((init' as baranga' secretar'. 2$e or!er o( !ismissal ,as
s%bmitte! to t$e O((ice o( t$e De&%t' Omb%!sman (or L%Bon. On //
October 1881 com&lainant obtaine! O&inion No. /0G s. 1881 (rom
Director 7acob Montesa o( t$e De&artment o( *nterior an! Local
Government ,$ic$ !eclare! t$at t$e a&&ointment iss%e! b'
Mag$irang to $is sisterDinDla, violate! &aragra&$ ;/< )ection 8C o(
B.=. Blg. 117 t$e LGC &rior to t$e LGC o( 1881. *n its -evise!
-esol%tion o( /8 November 1881U0V t$e O((ice o( t$e De&%t'
Omb%!sman (or L%Bon !ismisse! t$e case b%t or!ere! Mag$irang
to re&lace $is sisterDinDla, as baranga' secretar'. On /5 December
1881 com&lainant move! t$at t$e O((ice o( t$e De&%t'
Omb%!sman (or L%Bon reconsi!er t$e or!er o( /8 November 1881
in lig$t o( O&inion No. /0G s. 1881 o( Director Montesa. #cting on
t$e motion Francisco )amala Gra(t *nvestigation O((icer ** o( t$e
O((ice o( t$e De&%t' Omb%!sman (or L%Bon iss%e! an or!erUGV on 8
Febr%ar' 1880 granting t$e motion (or reconsi!eration an!
recommen!ing t$e (iling o( an in(ormation (or %nla,(%l
a&&ointment ;#rticle /00 o( t$e -evise! =enal Co!e< against
Mag$irang. 2$e recommen!ation ,as !%l' a&&rove! b' Man%el C.
Domingo De&%t' Omb%!sman (or L%Bon. *n a 1r! in!orsement
!ate! 0 Marc$ 1880U7V t$e De&%t' Omb%!sman (or L%Bon
transmitte! t$e recor! o( t$e case to t$e O((ice o( t$e Cit'
=rosec%tor o( )an =ablo Cit' an! instr%cte! t$e latter to (ile t$e
corres&on!ing in(ormation against Mag$irang ,it$ t$e &ro&er co%rt
an! to &rosec%te t$e case. *n $is Or!er o( 15 7%ne 188CU8V
res&on!ent 9%!ge !enie! t$e motion (or s%s&ension on t$e gro%n!
t$at: U2V$e allege! o((ense o( @NL#6F@L #==O*N2M3N2 %n!er
#rticle /00 o( t$e -evise! =enal Co!e ,as committe! on Ma' 17
1888 !%ring UMag$irang>sV terms ;sic< o( o((ice (rom 1888 to 1880
an! sai! acc%se! ,as again reDelecte! as Baranga' C$airman
!%ring t$e last Baranga' 3lection o( Ma' 8 1880 $ence o((enses
committe! !%ring &revio%s term is ;sic< not a ca%se (or removal
;LiBareB vs. Hec$anova et al. G.-. No. LD//5C8 Ma' 17 18GC<A an
or!er o( s%s&ension (rom o((ice relating to a given term ma' not be
t$e basis o( contem&t ,it$ res&ect to ones ;sic< ass%m&tion o( t$e
same o((ice %n!er a ne, term ;Oliveros vs. Killal%B G.-. No. LD
o((icer (or acts !one &rior to $is &resent term o( o((ice. 2o !o
ot$er,ise ,o%l! !e&rieve ;sic< t$e &eo&le o( t$eir rig$t to elect
t$eir o((icer. 6$en t$e &eo&le $ave electe! a man to o((ice it m%st
be ass%me! t$at t$e' !i! t$is ,it$ +no,le!ge o( $is li(e an!
c$aracter an! t$at t$e' !isregar!e! or (orgave $is (a%lt or
miscon!%ct ;sic< i( $e $a! been g%ilt' i( an'. M- !enie!.
Com&lainant t$en move! t$at res&on!ent in$ibit $imsel( (rom
Criminal Case No. /G/05. *n $is or!er o( /1 )e&tember 188CU11V
res&on!ent vol%ntaril' in$ibite! $imsel(. 2$e case ,as assigne! to
7%!ge #!elar!o ). 3scoses &er or!er o( 34ec%tive 7%!ge Bienveni!o
K. -e'es o( t$e -egional 2rial Co%rt o( )an =ablo Cit'. On 1C
October 188G com&lainant (ile! $is s,orn letterDcom&laint ,it$ t$e
O((ice o( t$e Co%rt #!ministrator. *n $is comment !ate! 10
Febr%ar' 1887 (ile! in com&liance ,it$ t$e resol%tion o( t$is Co%rt
o( /7 7an%ar' 1887 res&on!ent asserte! t$at $e $a! been
Econtin%o%sl' +ee&ing abreast o( legal an! 9%ris&r%!ential
!evelo&ment UsicV in t$e la,F since $e &asse! t$e 18CC Bar
34aminationsA an! t$at $e iss%e! t$e t,o c$allenge! or!ers Eonl'
a(ter !%e a&&reciation o( &revailing 9%ris&r%!ence on t$e matterF
citing a%t$orities in s%&&ort t$ereo(.
*ss%es: 1. 6ON a criminal o((ense (or violation o( -e&%blic #ct 1518
committe! b' an elective o((icer !%ring one term ma' be t$e basis
o( $is s%s&ension in a s%bse.%ent term in t$e event o( $is
reelection to o((ice.
L%ciano vs. =rovincial Governor: t$e cases o( =asc%al an!
LiBares are a%t$orit' (or t$e &rece&t t$at "a reelecte! &%blic
o((icer is no longer amenable to a!ministrative sanctions (or
acts committe! !%ring $is (ormer ten%re" b%t t$at as to
criminal &rosec%tions &artic%larl' (or violations o( t$e #ntiD
Gra(t an! Corr%&t =ractices #ct as in t$e case at bar t$e
same are not barre! b' reelection o( t$e &%blic o((icer
since inter alia one o( t$e &enalties attac$e! to t$e o((ense
is &er&et%al !is.%ali(ication (rom &%blic o((ice an! it "is
&atentl' o((ensive to t$e ob9ectives an! t$e letter o( t$e
#ntiDGra(t an! Corr%&t =ractice #ct . . . t$at an o((icial ma'
amass ,ealt$ t$r% gra(t an! corr%&t &ractices an!
t$erea(ter %se t$e same to &%rc$ase reelection an! t$ereb'
la%n!er $is evil acts."
=%nis$ment (or a crime is a vin!ication (or an o((ense
against t$e )tate an! t$e bo!' &olitic. 2$e small segment
o( t$e national electorate t$at constit%tes t$e electorate o(
t$e m%nici&alit' o( #nti&olo $as no &o,er to con!one a
/C5
crime against t$e &%blic 9%stice o( t$e )tate an! t$e entire
bo!' &olitic. -eelection to &%blic o((ice is not &rovi!e! (or in
#rticle 88 o( t$e -evise! =enal Co!e as a mo!e o(
e4ting%is$ing criminal liabilit' inc%rre! b' a &%blic o((icer
&rior to $is reelection. On t$e contrar' #rticle 8 o( t$e #ntiD
Gra(t #ct im&oses as one o( t$e &enalties in case o(
conviction &er&et%al !is.%ali(ication (rom &%blic o((ice an!
#rticle 15 o( t$e -evise! =enal Co!e !eclares t$at s%c$
&enalt' o( &er&et%al !is.%ali(ication entails "t$e !e&rivation
o( t$e &%blic o((ices an! em&lo'ments ,$ic$ t$e o((en!er
ma' $ave $el! even i( con(erre! b' &o&%lar election."
*t is mani(est t$en t$at s%c$ con!onation o( an o((icerHs
(a%lt or miscon!%ct !%ring a &revio%s e4&ire! term b' virt%e
o( $is reelection to o((ice (or a ne, term can be !eeme! to
a&&l' onl' to $is a!ministrative an! not to $is criminal g%ilt.
#s s%ccinctl' state! in t$en )olicitor General ;no, #ssociate
7%stice< Feli4 W. #ntonioHs memoran!%m (or t$e )tate "to
$ol! t$at &etitionerHs reelection erase! $is criminal liabilit'
,o%l! in e((ect trans(er t$e !etermination o( t$e criminal
c%l&abilit' o( an erring o((icial (rom t$e co%rt to ,$ic$ it ,as
lo!ge! b' la, into t$e c$anging an! transient ,$im an!
ca&rice o( t$e electorate. 2$is cannot be so (or ,$ile $is
constit%ents ma' con!one t$e mis!ee! o( a corr%&t o((icial
b' ret%rning $im bac+ to o((ice a criminal action initiate!
against t$e latter can onl' be $ear! an! trie! b' a co%rt o(
9%stice $is ne(ario%s act $aving been committe! against t$e
ver' )tate ,$ose la,s $e $a! s,orn to (ait$(%ll' obe' an!
%&$ol!. # contrar' r%le ,o%l! ero!e t$e ver' s'stem %&on
,$ic$ o%r government is base! ,$ic$ is one o( la,s an! not
o( men."
#g%inal!o v. )antos: a &%blic o((icial cannot be remove!
(rom a!ministrative miscon!%ct committe! !%ring a &rior
term since $is reDelection to o((ice o&erates as a
con!onation o( t$e o((icer>s &revio%s miscon!%ct to t$e
e4tent o( c%tting o(( t$e rig$t to remove $im t$ere(or. 2$e
(oregoing r%le $o,ever (in!s no a&&lication to criminal
cases &en!ing against &etitioner (or acts $e ma' $ave
committe! !%ring t$e (aile! co%&.
2$%s (ar no r%ling to t$e contrar' $as even ri&&le! t$e
!octrine en%nciate! in t$e aboveDmentione! cases. *(
res&on!ent $as tr%l' been Econtin%o%sl' +ee&ing abreast o(
legal an! 9%ris&r%!ential !evelo&ment UsicV in t$e la,F it
,as im&ossible (or $im to $ave misse! or misrea! t$ese
cases. 6$at !etracts (rom $is claim o( assi!%it' is t$e (act
t$at $e even cite! t$e cases o( Oliveros v. Killal%B an!
#g%inal!o v. )antos in s%&&ort o( $is 15 7%ne 188C or!er.
6$at is t$en evi!ent is t$at res&on!ent eit$er !i! not
t$oro%g$l' rea! t$ese cases or t$at $e sim&l'
miscom&re$en!e! t$em. 2$e latter o( co%rse ,o%l! onl'
mani(est eit$er incom&etence since bot$ cases ,ere
,ritten in &lain an! sim&le lang%age t$ereb' (oreclosing an'
&ossibilit' o( mis%n!erstan!ing or con(%sionA or !eliberate
!isregar! o( a long settle! !octrine &rono%nce! b' t$is
Co%rt.
Pablico v. $illapano
Facts: On #%g%st C 1888 Maaga! an! Fernan!eB bot$ members
o( t$e )angg%niang Ba'an o( )an Kicente =ala,an (ile! ,it$ t$e
)angg%niang =anlala,igan o( =ala,an an a!ministrative com&laint
against Killa&an!o t$en Ma'or o( )an Kicente =ala,an (or ab%se
o( a%t$orit' an! c%l&able violation o( t$e Constit%tion.
Com&lainants allege! t$at Killa&an!o on be$al( o( t$e m%nici&alit'
entere! into a cons%ltanc' agreement ,it$ 2ia&e a !e(eate!
ma'oralt' can!i!ate in t$e Ma' 1888 elections. 2$e' arg%e t$at
t$e cons%ltanc' agreement amo%nte! to an a&&ointment to a
government &osition ,it$in t$e &ro$ibite! oneD'ear &erio! %n!er
#rticle *JDB )ection G o( t$e 1887 Constit%tion. Ho,ever
accor!ing to Killa&an!o $e merel' $ire! 2ia&e. He invo+e! O&inion
No. 15G s. 188/ o( t$e DO7 stating t$at t$e a&&ointment o( a
!e(eate! can!i!ate ,it$in one 'ear (rom t$e election as a
cons%ltant !oes not constit%te an a&&ointment to a government
o((ice or &osition as &ro$ibite! b' t$e Constit%tion. 2$e
)angg%niang =anlala,igan o( =ala,an (o%n! Killa&an!o g%ilt' o(
t$e a!ministrative c$arge an! im&ose! on $im t$e &enalt' o(
!ismissal (rom service. He a&&eale! to t$e O((ice o( t$e =resi!ent
,$ic$ on Ma' /8 /555 a((irme! t$e !ecision o( t$e )angg%niang
=anlala,igan o( =ala,an. =en!ing res&on!ent>s motion (or
reconsi!eration o( t$e !ecision o( t$e O((ice o( t$e =resi!ent or on
7%ne 1G /555 &etitioner -amir -. =ablico t$en KiceDma'or o( )an
Kicente =ala,an too+ $is oat$ o( o((ice as M%nici&al Ma'or.
Conse.%entl' res&on!ent (ile! ,it$ t$e -egional 2rial Co%rt o(
=ala,an a &etition (or certiorari an! &ro$ibition ,it$ &reliminar'
in9%nction an! &ra'er (or a tem&orar' restraining or!er !oc+ete!
/C1
as )=L =roc. No. 10G/. 2$e &etition see+s to ann%l inter alia t$e
oat$ a!ministere! to &etitioner. 2$e 34ec%tive 7%!ge grante! a
2em&orar' -estraining Or!er e((ective (or 7/ $o%rs as a res%lt o(
,$ic$ &etitioner cease! (rom !isc$arging t$e (%nctions o( ma'or.
Mean,$ile t$e case ,as ra((le! to Branc$ 8C ,$ic$ on 7%ne /1
/555 !enie! res&on!ent>s motion (or e4tension o( t$e 7/D$o%r
tem&orar' restraining or!er. Hence &etitioner res%me! $is
ass%m&tion o( t$e (%nctions o( Ma'or o( )an Kicente =ala,an. On
7%l' 0 /555 res&on!ent instit%te! a &etition (or certiorari an!
&ro$ibition be(ore t$e Co%rt o( #&&eals see+ing to ann%l: ;1< t$e
Ma' /8 /555 !ecision o( t$e O((ice o( t$e =resi!entA ;/< t$e
Febr%ar' 1 /555 !ecision o( t$e )angg%niang =anlala,igan o(
=ala,anA an! ;1< t$e 7%ne /1 /555 or!er o( t$e -egional 2rial Co%rt
o( =ala,an Branc$ 8C. On Marc$ 1G /551 t$e Co%rt o( #&&eals8
!eclare! voi! t$e assaile! !ecisions o( t$e O((ice o( t$e =resi!ent
an! t$e )angg%niang =anlala,igan o( =ala,an an! or!ere!
&etitioner to vacate t$e O((ice o( Ma'or o( )an Kicente =ala,an. #
motion (or reconsi!eration ,as !enie! on #&ril /1 /551.15 Hence
t$e instant &etition (or revie,.
*ss%e: 6ON local legislative bo!ies an!?or t$e O((ice o( t$e
=resi!ent on a&&eal vali!l' im&ose! t$e &enalt' o( !ismissal (rom
service on erring elective local o((icials.
Moot an! aca!emic b%t )C resolve! to &ass %&on iss%e
concerning t$e a&&lication o( certain &rovisions o( t$e LGC
o( 1881.
)ection G5 last &aragra&$: #n elective local o((icial ma' be
remove! (rom o((ice on t$e gro%n!s en%merate! above b'
or!er o( t$e &ro&er co%rt. *t is clear t$at t$e &enalt' o(
!ismissal (rom service %&on an erring elective local o((icial
ma' be !ecree! onl' b' a co%rt o( la,.
)alalima v. G%ingona: t$e O((ice o( t$e =resi!ent is ,it$o%t
an' &o,er to remove electe! o((icials since s%c$ &o,er is
e4cl%sivel' veste! in t$e &ro&er co%rts as e4&ressl'
&rovi!e! (or in t$e last &aragra&$ o( t$e a(ore.%ote!
)ection G5.
#rticle 1/0 ;b< -%le J*J o( t$e -%les an! -eg%lations
*m&lementing t$e LGC $o,ever a!!s t$at X ";b< #n elective
local o((icial ma' be remove! (rom o((ice on t$e gro%n!s
en%merate! in &aragra&$ ;a< o( t$is #rticle U2$e gro%n!s
en%merate! in )ection G5 LGC o( 1881V b' or!er o( t$e
&ro&er co%rt or t$e !isci&lining a%t$orit' ,$ic$ever (irst
ac.%ires 9%ris!iction to t$e e4cl%sion o( t$e ot$er." 2$e
!isci&lining a%t$orit' re(erre! to &ertains to t$e
)angg%niang =anlala,igan?=anl%ngso!?Ba'an an! t$e O((ice
o( t$e =resi!ent.
)alalima: t$is grant to t$e "!isci&lining a%t$orit'" o( t$e
&o,er to remove elective local o((icials is clearl' be'on! t$e
a%t$orit' o( t$e Oversig$t Committee t$at &re&are! t$e
-%les an! -eg%lations. No r%le or reg%lation ma' alter
amen! or contravene a &rovision o( la, s%c$ as t$e LGC.
*m&lementing r%les s$o%l! con(orm not clas$ ,it$ t$e la,
t$at t$e' im&lement (or a reg%lation ,$ic$ o&erates to
create a r%le o%t o( $armon' ,it$ t$e stat%te is a n%llit'.
3ven )enator #.%ilino W. =imentel 7r. t$e &rinci&al a%t$or
o( t$e LGC o( 1881 e4&resse! !o%bt as to t$e vali!it' o(
#rticle 1/0 ;b< -%le J*J o( t$e im&lementing r%les.
2$e &o,er to remove erring elective local o((icials (rom
service is lo!ge! e4cl%sivel' ,it$ t$e co%rts. Hence #rticle
1/0 ;b< -%le J*J o( t$e -%les an! -eg%lations
*m&lementing t$e LGC inso(ar as it vests &o,er on t$e
"!isci&lining a%t$orit'" to remove (rom o((ice erring elective
local o((icials is voi! (or being re&%gnant to t$e last
&aragra&$ o( )ection G5 o( t$e LGC o( 1881. 2$e la, on
s%s&ension or removal o( elective &%blic o((icials m%st be
strictl' constr%e! an! a&&lie! an! t$e a%t$orit' in ,$om
s%c$ &o,er o( s%s&ension or removal is veste! m%st
e4ercise it ,it$ %tmost goo! (ait$ (or ,$at is involve! is not
9%st an or!inar' &%blic o((icial b%t one c$osen b' t$e &eo&le
t$ro%g$ t$e e4ercise o( t$eir constit%tional rig$t o( s%((rage.
2$eir ,ill m%st not be &%t to na%g$t b' t$e ca&rice or
&artisans$i& o( t$e !isci&lining a%t$orit'. 6$ere t$e
!isci&lining a%t$orit' is given onl' t$e &o,er to s%s&en! an!
not t$e &o,er to remove it s$o%l! not be &ermitte! to
mani&%late t$e la, b' %s%r&ing t$e &o,er to remove.
/C/
%varone v. COM%L%C
Facts: 3var!one is t$e ma'or o( t$e M%nici&alit' o( )%lat 3astern
)amar $aving been electe! to t$e &osition !%ring t$e 1888 local
elections. He ass%me! o((ice imme!iatel' a(ter &roclamation. On
10 Febr%ar' 1885 #&ela!o #clan an! Nival (ile! a &etition (or t$e
recall o( 3var!one ,it$ t$e O((ice o( t$e Local 3lection -egistrar
M%nici&alit' o( )%lat. COM3L3C iss%e! a resol%tion a&&roving t$e
recommen!ation to $ol! on 10 7%l' 1885 t$e signing o( t$e &etition
(or recall against inc%mbent Ma'or 3var!one o( t$e sai!
M%nici&alit'. 3var!one (ile! be(ore t$is Co%rt a &etition (or
&ro$ibition ,it$ %rgent &ra'er (or imme!iate iss%ance o( restraining
or!er an!?or ,rit o( &reliminar' in9%nction. )C iss%e! 2-O or!ering
t$e res&on!ents to cease an! !esist (rom $ol!ing t$e signing o( t$e
&etition (or recall.
Central O((ice got it on t$e same !a' b%t (iel! agent got it 1 !a's
later a !a' a(ter t$e com&letion o( t$e signing &rocess so%g$t to
be tem&oraril' sto&&e! b' t$e 2-O.
COM3L3C n%lli(ie! t$e signing &rocess $el! in )%lat 3astern )amar
(or being violative o( t$e 2-O. #&ela!o et al. (ile! M- !enie!.
Hence t$e &resent &etition (or revie, on certiorari.
*ss%es: 1. 6ON COM3L3C -esol%tion //7/ is constit%tional. :3).
3var!one: #rticle J )ection 1 o( t$e 1887 Constit%tion
re&eale! Batas =ambansa Blg. 117 in (avor o( one to be
enacte! b' Congress. )ince t$ere ,as !%ring t$e &erio!
material to t$is case no LGC enacte! b' Congress a(ter t$e
/C1
e((ectivit' o( t$e 1887 Constit%tion nor an' la, (or t$at
matter on t$e s%b9ect o( recall o( electe! government
o((icials t$ere is no basis (or COM3L3C -esol%tion No. //7/
an! t$at t$e recall &rocee!ings in t$e case at bar is
&remat%re.
COM3L3C: 2$e constit%tional &rovision !oes not re(er onl' to
a LGC ,$ic$ is in (%t%r%m b%t also in esse. *t merel' sets
(ort$ t$e g%i!elines ,$ic$ Congress ,ill consi!er in
amen!ing t$e &rovisions o( t$e &resent LGC. =en!ing t$e
enactment o( t$e amen!ator' la, t$e e4isting LGC remains
o&erative. 2$e a!o&tion o( t$e 1887 Constit%tion !i! not
abrogate t$e &rovisions o( B= No. 117 %nless a certain
&rovision t$ereo( is clearl' irreconciliable ,it$ t$e &rovisions
o( t$e 1887 Constit%tion. *n t$is case )ections C0 to C8 o(
Batas =ambansa No. 117 are not inconsistent ,it$ t$e
&rovisions o( t$e Constit%tion. Hence t$e' are o&erative.
#rticle JK*** )ection 1 o( t$e 1887 Constit%tion: all e4isting
la,s not inconsistent ,it$ t$e 1887 Constit%tion s$all
remain o&erative %ntil amen!e! re&eale! or revo+e!.
-e&%blic #ct No. 71G5 &rovi!ing (or t$e LGC o( 1881
a&&rove! b' t$e =resi!ent on 15 October 1881 s&eci(icall'
re&eals B.=. Blg. 117 as &rovi!e! in )ec. C10 2itle Fo%r o(
sai! #ct. B%t t$e LGC o( 1881 ,ill ta+e e((ect onl' on 1
7an%ar' 188/ an! t$ere(ore t$e ol! LGC ;B.=. Blg. 117< is
still t$e la, a&&licable to t$e &resent case.
Constit%tional Commission: &en!ing t$e enactment o( a ne,
LGC %n!er t$e re&ort o( t$e Committee on #men!ments an!
2ransitor' =rovisions t$e (ormer LGC ,$ic$ is Batas
=ambansa Blg. 117 s$all contin%e to be e((ective %ntil
re&eale! b' t$e Congress o( t$e =$ili&&ines.
C$a&ter 1 ;)ections C0 to C8< o( B.=. Blg. 117 &rovi!es (or
t$e mec$anism (or recall o( local elective o((icials. )ection
C8 e4&ressl' a%t$oriBes t$e res&on!ent COM3L3C to
con!%ct an! s%&ervise t$e &rocess o( an! election on recall
an! in t$e e4ercise o( s%c$ &o,ers &rom%lgate t$e
necessar' r%les an! reg%lations. 2$e 3lection Co!e contains
no s&ecial &rovisions on t$e manner o( con!%cting elections
(or t$e recall o( a local o((icial. #n' s%c$ election s$all be
con!%cte! in t$e manner an! %n!er t$e r%les on s&ecial
elections %nless ot$er,ise &rovi!e! b' la, or r%le o( t$e
COM3L3C. 2$%s &%rs%ant to t$e r%leDma+ing &o,er veste!
in res&on!ent COM3L3C it &rom%lgate! -esol%tion No.
//7/ on /1 Ma' 1885.
-esol%tion No. //7/ &rom%lgate! b' res&on!ent COM3L3C
is vali! an! constit%tional. Conse.%entl' t$e res&on!ent
COM3L3C $a! t$e a%t$orit' to a&&rove t$e &etition (or recall
an! set t$e !ate (or t$e signing o( sai! &etition.
/. 6ON t$e 2-O iss%e! b' t$is Co%rt ren!ere! n%gator' t$e
signing &rocess o( t$e &etition (or recall $el! &%rs%ant to
-esol%tion No. //7/.
=are!es v. 34ec )ec ,$ere &lebiscite ,as $el! be(ore &lea
(or restraining or!er co%l! be !etermine!: &etition became
moot an! aca!emic.
3var!one +ne, o( t$e Notice o( -ecall (ile! b' #&ela!o et
al. on or abo%t /1 Febr%ar' 1885 as evi!ence! b' t$e
-egistr' -et%rn -ecei&tA 'et $e ,as not vigilant in (ollo,ing
%& an! !etermining t$e o%tcome o( s%c$ notice. 3var!one
alleges t$at it ,as onl' on or abo%t 1 7%l' 1885 t$at $e
came to +no, abo%t t$e -esol%tion o( res&on!ent COM3L3C
setting t$e signing o( t$e &etition (or recall on 10 7%l' 1885.
B%t !es&ite $is %rgent &ra'er (or t$e iss%ance o( a 2-O
3var!one (ile! t$e &etition (or &ro$ibition onl' on 15 7%l'
1885.
Co%rt iss%e! a 2-O on 1/ 7%l' 1885 b%t t$e signing o( t$e
&etition (or recall too+ &lace 9%st t$e same on t$e sc$e!%le!
!ate t$ro%g$ no (a%lt o( t$e res&on!ent COM3L3C an!
#&ela!o et al. 2$e signing &rocess ,as %n!erta+en b' t$e
constit%ents o( t$e M%nici&alit' o( )%lat an! its 3lection
-egistrar in goo! (ait$ an! ,it$o%t +no,le!ge o( t$e 2-O
earlier iss%e! b' t$is Co%rt. #s atteste! b' 3lection -egistrar
)%mbilla abo%t /5C5 o( t$e G585 registere! voters o(
)%lat 3astern )amar or abo%t 10Y signe! t$e &etition (or
recall.
2$e rig$t to recall is com&lementar' to t$e rig$t to elect or
a&&oint. *t is incl%!e! in t$e rig$t o( s%((rage. *t is base! on
t$e t$eor' t$at t$e electorate m%st maintain a !irect an!
elastic control over &%blic (%nctionaries. *t is also &re!icate!
%&on t$e i!ea t$at a &%blic o((ice is "b%r!ene!" ,it$ &%blic
interests an! t$at t$e re&resentatives o( t$e &eo&le $ol!ing
&%blic o((ices are sim&l' agents or servants o( t$e &eo&le
,it$ !e(inite &o,ers an! s&eci(ic !%ties to &er(orm an! to
(ollo, i( t$e' ,is$ to remain in t$eir res&ective o((ices.
/C0
6$et$er or not t$e electorate o( t$e M%nici&alit' o( )%lat
$as lost con(i!ence in t$e inc%mbent ma'or is a &olitical
.%estion. *t belongs to t$e realm o( &olitics ,$ere onl' t$e
&eo&le are t$e 9%!ge. "Loss o( con(i!ence is t$e (ormal
,it$!ra,al b' an electorate o( t$eir tr%st in a &ersonHs
abilit' to !isc$arge $is o((ice &revio%sl' besto,e! on $im b'
t$e same electorate. 2$e constit%ents $ave ma!e a
9%!gment an! t$eir ,ill to recall t$e inc%mbent ma'or $as
alrea!' been ascertaine! an! m%st be a((or!e! t$e $ig$est
res&ect. 2$%s t$e signing &rocess $el! last 10 7%l' 1885 in
)%lat 3astern )amar (or t$e recall o( Ma'or Feli&e =.
3var!one o( sai! m%nici&alit' is vali! an! $as legal e((ect.
Ho,ever recall at t$is time is no longer &ossible beca%se o(
t$e limitation &rovi!e! in )ec. CC ;/< o( B.=. Blg 117 ,$ic$
states: )ec. CC. 6$o Ma' Be -ecalle!A Gro%n! (or -ecallA
6$en -ecall Ma' not be Hel!.S ;/< No recall s$all ta+e
&lace ,it$in t,o 'ears (rom t$e !ate o( t$e o((icialHs
ass%m&tion o( o((ice or one 'ear imme!iatel' &rece!ing a
reg%lar local election.
2$e Constit%tion $as man!ate! a s'nc$roniBe! national an!
local election &rior to 15 7%ne 188/ or more s&eci(icall' as
&rovi!e! (or in #rticle JK*** )ec. C S on t$e secon! Mon!a'
o( Ma' 188/. 11 2$%s to $ol! an election on recall
a&&ro4imatel' seven ;7< mont$s be(ore t$e reg%lar local
election ,ill be violative o( t$e above &rovisions o( t$e
a&&licable LGC ;B.=. Blg. 117<
Garcia v. COM%L%C
Facts: Garcia ,as electe! governor o( t$e &rovince o( Bataan in t$e
Ma' 11 188/ elections. *n t$e earl' evening o( 7%l' 1881 some
ma'ors viceDma'ors an! members o( t$e )angg%niang Ba'an o(
t$e t,elve ;1/< m%nici&alities o( t$e &rovince met at t$e National
=o,er Cor&oration com&o%n! in Bagac Bataan. #t abo%t 1/:15 #.M
o( t$e (ollo,ing !a' 7%l' / 1881 t$e' &rocee!e! to t$e Bagac
to,n &laBa ,$ere t$e' constit%te! t$emselves into a =re&arator'
-ecall #ssembl' to initiate t$e recall election o( &etitioner Garcia.
2$e =-# &rom%lgate! -esol%tion 1 (or t$e recall o( t$e inc%mbent
&rovincial governor Garcia (or loss o( con(i!ence.
=etitioners (ile! ,it$ t$e COM3L3C a &etition to !en' !%e co%rse to
sai! -esol%tion on t$e gro%n! t$at t$e =-#C (aile! to com&l' ,it$
t$e "s%bstantive an! &roce!%ral re.%irement" lai! !o,n in )ection
75 o( t$e LGC. 2$e COM3L3C !ismisse! t$e &etition an! sc$e!%le!
t$e recall elections (or t$e &osition o( Governor o( Bataan.
=etitioners t$en (ile! ,it$ t$e )C a &etition (or certiorari an!
&ro$ibition ,it$ ,rit o( &reliminar' in9%nction to ann%l t$e sai!
-esol%tion o( t$e res&on!ent COM3L3C.
*ss%es: 1. 6ON section 75 o( -.#. 71G5 inso(ar as it allo,s a
&re&arator' recall assembl' initiate t$e recall o( local elective
o((icials is constit%tional
-ecall is a mo!e o( removal o( a &%blic o((icer b' t$e &eo&le
be(ore t$e en! o( $is term o( o((ice. 2$e &eo&leHs
&rerogative to remove a &%blic o((icer is an inci!ent o( t$eir
sovereign &o,er an! in t$e absence o( constit%tional
restraint t$e &o,er is im&lie! in all governmental
o&erations. )%c$ &o,er $as been $el! to be in!is&ensable
(or t$e &ro&er a!ministration o( &%blic a((airs. Not
%n!eserve!l' it is (re.%entl' !escribe! as a (%n!amental
rig$t o( t$e &eo&le in a re&resentative !emocrac'.
=: t$e rig$t to recall !oes not e4ten! merel' to t$e
&rerogative o( t$e electorate to recon(irm or ,it$!ra, t$eir
con(i!ence on t$e o((icial so%g$t to be recalle! at a s&ecial
election. )%c$ &rerogative necessaril' incl%!es t$e sole an!
e4cl%sive rig$t to !eci!e on ,$et$er to initiate a recall
&rocee!ings or not.
2$ere is not$ing in t$e Constit%tion t$at ,ill remotel'
s%ggest t$at t$e &eo&le $ave t$e "sole an! e4cl%sive rig$t
to !eci!e on ,$et$er to initiate a recall &rocee!ing." 2$e
Constit%tion !i! not &rovi!e (or an' mo!e let alone a single
mo!e o( initiating recall elections. Neit$er !i! it &ro$ibit t$e
a!o&tion o( m%lti&le mo!es o( initiating recall elections. 2$e
man!ate given b' section 1 o( #rticle J o( t$e Constit%tion is
(or Congress to "enact a LGC ,$ic$ s$all &rovi!e (or a more
res&onsive an! acco%ntable local government str%ct%re
t$ro%g$ a s'stem o( !ecentraliBation ,it$ e((ective
mec$anisms o( recall initiative an! re(eren!%m . . ." B' t$is
constit%tional man!ate Congress ,as clearl' given t$e
&o,er to c$oose t$e e((ective mec$anisms o( recall as its
!iscernment !ictates. 2$e &o,er given ,as to select ,$ic$
among t$e means an! met$o!s o( initiating recall elections
are e((ective to carr' o%t t$e 9%!gment o( t$e electorate.
Congress ,as not straig$t9ac+ete! to one &artic%lar
mec$anism o( initiating recall elections. 6$at t$e
/CC
Constit%tion sim&l' re.%ire! is t$at t$e mec$anisms o(
recall ,$et$er one or man' to be c$osen b' Congress
s$o%l! be e((ective. @sing its constit%tionall' grante!
!iscretion Congress !eeme! it ,ise to enact an alternative
mo!e o( initiating recall elections to s%&&lement t$e (ormer
mo!e o( initiation b' !irect action o( t$e &eo&le. Congress
$as ma!e its c$oice as calle! (or b' t$e Constit%tion an! it
is not t$e &rerogative o( t$is Co%rt to s%&&lant t$is
9%!gment. 2$e c$oice ma' be erroneo%s b%t even t$en t$e
reme!' against a ba! la, is to see+ its amen!ment or
re&eal b' t$e legislative. B' t$e &rinci&le o( se&aration o(
&o,ers it is t$e legislative t$at !etermines t$e necessit'
a!e.%ac' ,is!om an! e4&e!ienc' o( an' la,.
/. 6ON in &assing -esol%tion 1 t$e Bataan =re&arator' -ecall
#ssembl' !i! not onl' initiate t$e &rocess o( recall b%t $a!
!e (acto recalle! &etitioner Garcia (rom o((ice a &o,er
reserve! to t$e &eo&le alone.
=: 2$e initiation o( a recall t$ro%g$ t$e =-# e((ectivel'
s$ortens an! en!s t$e term o( t$e inc%mbent local o((icials.
2$e =-# resol%tion o( recall is t$e re call itsel(.
=etitioners $ave misconstr%e! t$e nat%re o( t$e initiator'
&rocess o( recall b' t$e =-#C. 2$e' $ave embrace! t$e vie,
t$at initiation b' t$e =-#C is not initiation b' t$e &eo&le.
2$is is a misim&ression (or initiation b' t$e =-#C is also
initiation b' t$e &eo&le albeit !one in!irectl' t$ro%g$ t$eir
re&resentatives. *t is not constit%tionall' im&ermissible (or
t$e &eo&le to act t$ro%g$ t$eir electe! re&resentatives.
More (ar o%t is &etitionersH stance t$at a =-# resol%tion o(
recall is t$e recall itsel(. *t cannot be serio%sl' !o%bte! t$at
a =-# resol%tion o( recall merel' starts t$e &rocess. *t is
&art o( t$e &rocess b%t is not t$e ,$ole &rocess. 2$is o%g$t
to be sel( evi!ent (or a =-# resol%tion o( recall t$at is not
s%bmitte! to t$e COM3L3C (or vali!ation ,ill not recall its
s%b9ect o((icial. Li+e,ise a =-# resol%tion o( recall t$at is
re9ecte! b' t$e &eo&le in t$e election calle! (or t$e &%r&ose
bears no e((ect ,$atsoever. 2$e initiator' resol%tion merel'
sets t$e stage (or t$e o((icial concerne! to a&&ear be(ore
t$e trib%nal o( t$e &eo&le so $e can 9%sti(' ,$' $e s$o%l! be
allo,e! to contin%e in o((ice. Be(ore t$e &eo&le ren!er t$eir
sovereign 9%!gment t$e o((icial concerne! remains in o((ice
b%t $is rig$t to contin%e in o((ice is s%b9ect to .%estion. 2$is
is clear in section 7/ o( t$e LGC ,$ic$ states t$at "t$e recall
o( an elective local o((icial s$all be e((ective onl' %&on t$e
election an! &roclamation o( a s%ccessor in t$e &erson o(
t$e can!i!ate receiving t$e $ig$est n%mber o( votes cast
!%ring t$e election on recall.
/. 6ON t$e la, is violative o( t$e 3.%al =rotection Cla%se.
# care(%l rea!ing o( t$e la, $o,ever ,ill inel%ctabl' s$o,
t$at it !oes not give an as'mmetrical treatment to locall'
electe! o((icials belonging to t$e &olitical minorit'. First to
be consi!ere! is t$e &oliticall' ne%tral com&osition o( t$e
&re&arator' recall assembl'. )ec. 75 ;b< o( t$e Co!e. @n!er
t$e la, all ma'ors viceDma'ors an! sangg%niang members
o( t$e m%nici&alities an! com&onent cities are ma!e
members o( t$e &re&arator' recall assembl' at t$e
&rovincial level. *ts members$i& is not a&&ortione! to
&olitical &arties. No signi(icance is given to t$e &olitical
a((iliation o( its members. )econ!l' t$e &re&arator' recall
assembl' at t$e &rovincial level incl%!es all t$e electe!
o((icials in t$e &rovince concerne!. Consi!ering t$eir
n%mber t$e greater &robabilit' is t$at no one &olitical &art'
can control its ma9orit'. 2$ir!l' sec. G8 o( t$e Co!e
&rovi!es t$at t$e onl' gro%n! to recall a locall' electe!
&%blic o((icial is loss o( con(i!ence o( t$e &eo&le. 2$e
members o( t$e =-#C are in t$e =-#C not in re&resentation
o( t$eir &olitical &arties b%t as re&resentatives o( t$e &eo&le.
B' necessar' im&lication loss o( con(i!ence cannot be
&remise! on mere !i((erences in &olitical &art' a((iliation.
*n!ee! o%r Constit%tion enco%rages m%ltiD&art' s'stem (or
t$e e4istence o( o&&osition &arties is in!is&ensable to t$e
gro,t$ an! n%rt%re o( !emocratic s'stem. Clearl' t$en t$e
la, as cra(te! cannot be (a%lte! (or !iscriminating against
local o((icials belonging to t$e minorit'.
2$e (ear t$at a &re&arator' recall assembl' ma' be
!ominate! b' a &olitical &art' an! t$at it ma' %se its &o,er
to initiate t$e recall o( o((icials o( o&&osite &olitical
&ers%asions es&eciall' t$ose belonging to t$e minorit' is
not a gro%n! to stri+e !o,n t$e la, as %nconstit%tional. 2o
be s%re t$is arg%ment $as long been in !is%se (or t$ere can
be no esca&e (rom t$e realit' t$at all &o,ers are s%sce&tible
o( ab%se. 2$e mere &ossibilit' o( ab%se cannot $o,ever
in(irm &er se t$e grant o( &o,er to an in!ivi!%al or entit'.
Moreover t$e la, instit%te! sa(eg%ar!s to ass%re t$at t$e
/CG
initiation o( t$e recall &rocess b' a &re&arator' recall
assembl' ,ill not be corr%&te! b' e4traneo%s in(l%ences.
2$ere is onl' one gro%n! (or t$e recall o( local government
o((icials: loss o( con(i!ence. 2$is means t$at t$e &eo&le ma'
&etition or t$e =re&arator' -ecall #ssembl' ma' resolve to
recall an' local elective o((icials ,it$o%t s&eci('ing an'
&artic%lar gro%n! e4ce&t loss o( con(i!ence. 2$ere is no
nee! (or t$em to bring %& an' c$arge o( ab%se or corr%&tion
against t$e local elective o((icials ,$o are t$e s%b9ect o( an'
recall &etition.
3var!one vs. Commission on 3lections: "loss o( con(i!ence"
as a gro%n! (or recall is a &olitical .%estion. *n t$e ,or!s o(
t$e Co%rt ",$et$er or not t$e electorate o( t$e m%nici&alit'
o( )%lat $as lost con(i!ence in t$e inc%mbent ma'or is a
&olitical .%estion.
/. 6ON t$e resol%tion o( t$e members o( t$e =-# s%bverte!
t$e ,ill o( t$e electorate o( t$e &rovince o( Bataan ,$o
electe! &etitioner Garcia ,it$ a ma9orit' o( 1/C55 votes.
#gain t$e contention &rocee!s (rom t$e erroneo%s &remise
t$at t$e resol%tion o( recall is t$e recall itsel(. *t re(%ses to
recogniBe t$e realit' t$at t$e resol%tion o( recall is a mere
&ro&osal to t$e electorate o( Bataan to s%b9ect &etitioner to
a ne, test o( (ait$. 2$e &ro&osal ,ill still be &asse! %&on b'
t$e sovereign electorate o( Bataan. #s t$is 9%!gment $as 'et
to be e4&resse! it is &remat%re to concl%!e t$at t$e
sovereign ,ill o( t$e electorate o( Bataan $as been
s%bverte!.
Garcia v. COM%L%C /supra- see p.D41
Paras v. COM%L%C
Facts: =aras is t$e inc%mbent =%nong Baranga' o( =%la
Cabanat%an Cit' ,$o ,on !%ring t$e last reg%lar baranga' election
in 1880. # &etition (or $is recall as =%nong Baranga' ,as (ile! b'
t$e registere! voters o( t$e baranga'. #cting on t$e &etition (or
recall COM3L3C resolve! to a&&rove t$e &etition sc$e!%le! t$e
&etition signing on October 10 188C an! set t$e recall election on
November 11 188C. #t least /8.15Y o( t$e registere! voters
signe!. 2$e COM3L3C $o,ever !e(erre! t$e recall election in vie,
o( &etitioner>s o&&osition. On December G 188C t$e COM3L3C set
ane, t$e recall election t$is time on December 1G 188C. 2o
&revent t$e $ol!ing o( t$e recall election &etitioner (ile! be(ore t$e
-2C a &etition (or in9%nction. 2$e -2C iss%e! a 2-O. #(ter
con!%cting a s%mmar' $earing t$e trial co%rt li(te! t$e restraining
or!er !ismisse! t$e &etition an! re.%ire! &etitioner an! $is
co%nsel to e4&lain ,$' t$e' s$o%l! not be cite! (or contem&t (or
misre&resenting t$at t$e baranga' recall election ,as ,it$o%t
COM3L3C a&&roval. *n a resol%tion !ate! 7an%ar' C 188G t$e
COM3L3C (or t$e t$ir! time reDsc$e!%le! t$e recall election on
7an%ar' 11 188GA $ence t$e instant &etition (or certiorari ,it$
%rgent &ra'er (or in9%nction. On 7an%ar' 1/ 188G t$e Co%rt iss%e!
a 2-O an! re.%ire! t$e O)G to comment on t$e &etition. *n vie, o(
t$e O)Gl>s mani(estation maintaining an o&inion a!verse to t$at o(
t$e COM3L3C t$e latter t$ro%g$ its la, !e&artment (ile! t$e
re.%ire! comment. =etitioner t$erea(ter (ile! a re&l'.
*ss%e: 6ON t$e recall election ma' be barre! b' t$e )M elections.
)ection 70 ;b< LGC: no recall s$all ta+e &lace ,it$in one ;1<
'ear (rom t$e !ate o( t$e o((icial>s ass%m&tion to o((ice or
one ;1< 'ear imme!iatel' &rece!ing a reg%lar local election
=: t$e sc$e!%le! 7an%ar' 11 188G recall election is no,
barre! as t$e )M< election ,as set on t$e (irst Mon!a' o(
Ma' 188G. =etitioner maintains t$at as t$e )M election is a
reg%lar local election $ence no recall election can be $a!
(or barel' (o%r mont$s se&arate t$e )M election (rom t$e
recall election.
*t is a r%le in stat%tor' constr%ction t$at ever' &art o( t$e
stat%te m%st be inter&rete! ,it$ re(erence to t$e conte4t
i.e. t$at ever' &art o( t$e stat%te m%st be consi!ere!
toget$er ,it$ t$e ot$er &arts an! +e&t s%bservient to t$e
general intent o( t$e ,$ole enactment. 2$e evi!ent intent o(
)ection 70 is to s%b9ect an elective local o((icial to recall
election once !%ring $is term o( o((ice. =aragra&$ ;b<
constr%e! toget$er ,it$ &aragra&$ ;a< merel' !esignates
t$e &erio! ,$en s%c$ elective local o((icial ma' be s%b9ect
o( a recall election t$at is !%ring t$e secon! 'ear o( $is
term o( o((ice. 2$%s s%bscribing to &etitioner>s
inter&retation o( t$e &$rase reg%lar local election to incl%!e
t$e )M election ,ill %n!%l' circ%mscribe t$e novel &rovision
o( t$e LGC on recall a mo!e o( removal o( &%blic o((icers b'
initiation o( t$e &eo&le be(ore t$e en! o( $is term. #n! i(
t$e )M election ,$ic$ is set b' -.#. No. 7858 to be $el!
ever' t$ree 'ears (rom Ma' 188G ,ere to be !eeme! ,it$in
/C7
t$e &%rvie, o( t$e &$rase Ereg%lar local electionF as
erroneo%sl' insiste! b' &etitioner t$en no recall election
can be con!%cte! ren!ering in%tile t$e recall &rovision o(
t$e LGC.
*n t$e inter&retation o( a stat%te t$e Co%rt s$o%l! start ,it$
t$e ass%m&tion t$at t$e legislat%re inten!e! to enact an
e((ective la, an! t$e legislat%re is not &res%me! to $ave
!one a vain t$ing in t$e enactment o( a stat%te. #n
inter&retation s$o%l! i( &ossible be avoi!e! %n!er ,$ic$ a
stat%te or &rovision being constr%e! is !e(eate! or as
ot$er,ise e4&resse! n%lli(ie! !estro'e! emasc%late!
re&eale! e4&laine! a,a' or ren!ere! insigni(icant
meaningless ino&erative or n%gator'.
*t is li+e,ise a basic &rece&t in stat%tor' constr%ction t$at a
stat%te s$o%l! be inter&rete! in $armon' ,it$ t$e
Constit%tion. 2$%s t$e inter&retation o( )ection 70 o( t$e
LGC s&eci(icall' &aragra&$ ;b< t$ereo( s$o%l! not be in
con(lict ,it$ t$e Constit%tional man!ate o( )ection 1 o(
#rticle J o( t$e Constit%tion to enact a LGC ,$ic$ s$all
&rovi!e (or a more res&onsive an! acco%ntable local
government str%ct%re instit%te! t$ro%g$ a s'stem o(
!ecentraliBation ,it$ e((ective mec$anisms o( recall
initiative an! re(eren!%m.
2$e s&irit rat$er t$an t$e letter o( a la, !etermines its
constr%ctionA $ence a stat%te as in t$is case m%st be rea!
accor!ing to its s&irit an! intent.
-ecall election is &otentiall' !isr%&tive o( t$e normal
,or+ing o( t$e local government %nit necessitating
a!!itional e4&enses $ence t$e &ro$ibition against t$e
con!%ct o( recall election one 'ear imme!iatel' &rece!ing
t$e reg%lar local election. 2$e &roscri&tion is !%e to t$e
&ro4imit' o( t$e ne4t reg%lar election (or t$e o((ice o( t$e
local elective o((icial concerne!. 2$e electorate co%l!
c$oose t$e o((icial>s re&lacement in t$e sai! election ,$o
certainl' $as a longer ten%re in o((ice t$an a s%ccessor
electe! t$ro%g$ a recall election. *t ,o%l! t$ere(ore be
more in +ee&ing ,it$ t$e intent o( t$e recall &rovision o( t$e
Co!e to constr%e reg%lar local election as one re(erring to
an election ,$ere t$e o((ice $el! b' t$e local elective o((icial
so%g$t to be recalle! ,ill be conteste! an! be (ille! b' t$e
electorate.
Nevert$eless recall at t$is time is no longer &ossible
beca%se o( t$e limitation state! %n!er )ection 70 ;b< o( t$e
Co!e consi!ering t$at t$e ne4t reg%lar election involving t$e
baranga' o((ice concerne! is barel' seven ;7< mont$s a,a'
t$e same $aving been sc$e!%le! on Ma' 1887.
Malonzo v. COM%L%C
Facts: MalonBo ,as !%l' electe! as Ma'or in t$e elections $el! on
Ma' 8 188C ,inning over (ormer ma'or #sistio. Barel' one 'ear
into $is term &etitionerHs o((ice as Ma'or ,as &%t to serio%s
.%estion ,$en on 7%l' 7 188G 15C7 =%nong Baranga's an!
)angg%niang Baranga' members an! )angg%niang Mabataan
c$airmen constit%ting a ma9orit' o( t$e members o( t$e
=re&arator' -ecall #ssembl' o( t$e Cit' o( Caloocan met an! %&on
!eliberation an! election vote! (or t$e a&&roval o( =re&arator'
-ecall #ssembl' -esol%tion No. 51D8G e4&ressing loss o(
con(i!ence in Ma'or MalonBo an! calling (or t$e initiation o( recall
&rocee!ings against $im. 2oget$er ,it$ relevant !oc%ments =-#
-esol%tion No. 51D8G ,as (ile! ,it$ t$e COM3L3C (or a&&ro&riate
action. *n res&onse Ma'or MalonBo (ile! a =etition ,it$ t$e
res&on!ent Commission alleging &rinci&all' t$at t$e recall &rocess
,as !e(icient in (orm an! s%bstance an! t$ere(ore illegall'
initiate!. 2$e COM3L3C (o%n! t$e &etition !evoi! o( merit an!
!eclare! t$e recall &rocee!ings to be in or!er. MalonBo (ile! a
=etition (or Certiorari 6it$ =ra'er For 2em&orar' -estraining Or!er
an! #&&lication (or 6rit o( =reliminar' *n9%nction. )C iss%e!
resol%tion or!ering t$e res&on!ent COM3L3C to cease an! !esist
(rom &rocee!ing ,it$ t$e recall election &ro9ecte! on December 10
188G an! !irecting t$e res&on!ents to (ile t$eir res&ective
Comments.
*ss%e: 1. 6ON t$e re.%irements (or t$e $ol!ing o( a recall election
,ere !%l' com&lie! ,it$.
2$e matter o( vali!it' o( notices to t$e members o( t$e
=re&arator' -ecall #ssembl' ,as s%((icientl' consi!ere! b'
t$e res&on!ent Commission as in res&onse to &etitionerHs
re.%est (or a tec$nical e4amination o( t$e recall !oc%ments
t$e COM3L3C !irecte! its 3lection -ecor!s an! )tatistics
De&artment ;3-)D< to resolve t$e matter o( notices sent to
t$e =re&arator' -ecall #ssembl' members. 2$e 3-)D in
/C8
t%rn &er(orme! its tas+ an! re&orte! its (in!ings to t$e
COM3L3C.
3-)D re&orte! t$at t$ere ,ere a total o( 18/7 notices sent
some members being serve! t,o or t$ree notices. 2$e
Notices ,ere sent in t$ree mo!esA =ersonal registere! mail
an! b' co%rier an! t$e' ,ere in t$e name o( t$e =-#
member an! a!!resse! at $is resi!ence or o((ice o( recor!.
=ersonal services ,ere ac+no,le!ge! b' recei&ts signe! i(
not b' t$e a!!ressee $imsel( t$en as in!icate! t$ereon b'
$is or $er s&o%se nearest relative or a &erson o( s%((icient
!iscretion in t$e memberHs resi!ence or o((ice. )ervice b'
registere! mail ,as evince! b' t$e ret%rn car! !%l' signe!
b' t$e a!!ressee or b' &ersons acting (or $im. 2$ere ,ere
instances ,$en notices ,ere serve! b%t ,ere re(%se! t$is
(act note! in t$e ac+no,le!gment recei&t b' t$e server an!
$is ,itnesses. 2$e circ%mstances being t$%s ,e $ol! t$at
t$ere ,as com&lete service o( t$e notices as contem&late!
in )ection 8 -%le 11 o( t$e -%les o( Co%rt ,$ic$ &rovi!es:
)ection 8 D Com&leteness o( )ervice D =ersonal service is
com&lete %&on !eliver'. )ervice b' or!inar' mail is
com&lete %&on t$e e4&iration o( (ive ;C< !a's a(ter mailing
%nless t$e co%rt ot$er,ise &rovi!esA )ervice b' registere!
mail is com&lete %&on act%al recei&t b' t$e a!!resseeA b%t i(
$e (ails to claim $is mail (rom t$e &ost o((ice ,it$in (ive ;C<
!a's (rom t$e !ate o( (irst notice o( t$e &ostmaster service
s$all ta+e e((ect at t$e e4&iration o( s%c$ time.H
2$at it ,as #le4 Davi! =resi!ent o( t$e L*G# ng mga
Baranga' ,$o sent t$e notices is o( no moment. 6e $a!
earlier !etermine! t$at as member o( t$e =-# $e can
legall' e4ercise t$e &rerogatives attac$e! to $is
members$i& in t$e =re&arator' -ecall #ssembl' sen!ing
notices to t$e ot$er members o( its sc$e!%le! convening. *t
is evi!ent (rom t$e (oregoing an! t$ere(ore t$e
Commission so $ol!s t$at t$e re.%irements o( notice $a!
been (%ll' com&lie! ,it$.
2$e iss%e o( &ro&riet' o( t$e notices sent to t$e =-#
members is (act%al in nat%re an! t$e !etermination o( t$e
same is t$ere(ore a (%nction o( t$e COM3L3C. *n t$e
absence o( &atent error or serio%s inconsistencies in t$e
(in!ings t$e Co%rt s$o%l! not !ist%rb t$e same. 2$e (act%al
(in!ings o( t$e COM3L3C base! on its o,n assessments an!
!%l' s%&&orte! b' gat$ere! evi!ence are concl%sive %&on
t$e co%rt more so in t$e absence o( a s%bstantiate! attac+
on t$e vali!it' o( t$e same.
/. 6ON t$e initiation o( t$e recall &rocee!ings ,as in(irm since
it ,as convene! b' t$e Liga ng mga Baranga's. NO.
2$e Liga ng mga Baranga' is %n!o%bte!l' an entit' !istinct
(rom t$e =re&arator' -ecall #ssembl'. *t 9%st so $a&&ens
t$at t$e &ersonalities re&resenting t$e baranga's in t$e Liga
are t$e ver' members o( t$e =re&arator' -ecall #ssembl'
t$e ma9orit' o( ,$om met on 7%l' 7 188G an! vote! in
(avor o( t$e resol%tion calling (or t$e recall o( Ma'or
MalonBo a(ter !eliberation re&orte! in t$e recor! in
accor!ance ,it$ t$e e4isting la,. 2$%s t$e =%nong
Baranga's an! )angg%niang Baranga' members convene!
an! vote! as members o( t$e =re&arator' -ecall #ssembl'
o( t$e Cit' o( Caloocan an! not as members o( t$e Liga ng
mga Baranga'. 2$e recall &rocee!ings t$ere(ore cannot be
!enie! merit on t$is gro%n!.
COM3L3C: "2$e Min%tes o( t$e session o( t$e =re&arator'
#ssembl' in!icate! t$at t$ere ,as a session $el!. #tten!ees
constit%te t$e ma9orit' o( all t$e members o( t$e
=re&arator' #ssembl' as ,e s$all later on establis$. -%les
o( &roce!%re sim&le t$e' ma' be ,ere (orm%late!.
Deliberations ,ere con!%cte! on t$e main iss%e ,$ic$ ,as
t$at o( &etitionerHs recall. 2$e members ,ere given t$e
o&&ort%nit' to artic%late on t$eir resolve abo%t t$e matter.
More im&ortantl' t$eir sentiments ,ere e4&resse! t$ro%g$
t$eir votes signi(ie! b' t$eir signat%res an! t$%mbmar+s
a((i4e! to t$e -esol%tion. No &roo( ,as a!!%ce! b'
=etitioner to s%bstantiate $is claim t$at t$e signat%res
a&&earing t$ereon re&resente! a ca%se ot$er t$an t$at o(
a!o&ting t$e resol%tion. 2$e la, on recall !i! not &rescribe
an elaborate &rocee!ing. Neit$er !i! it !eman! a s&eci(ic
&roce!%re. 6$at is (%n!amental is com&liance ,it$ t$e
&rovision t$at t$ere s$o%l! be a session calle! (or t$e
&%r&ose o( initiating recall &rocee!ings atten!e! b' a
ma9orit' o( all t$e members o( t$e &re&arator' recall
assembl' in a &%blic &lace an! t$at t$e resol%tion res%lting
(rom s%c$ assembl' be a!o&te! b' a ma9orit' o( all t$e =-#
members."
2$e c$arges o( gra(t an! corr%&tion violence an!
irreg%larities be(ore an! !%ring t$e session o( t$e
&re&arator' recall assembl' are largel' %ncorroborate! an!
/C8
cannot overri!e t$e s%bstantiate! (in!ings o( t$e
res&on!ent COM3L3C.
Clauio v. COM%L%C
Facts: 7ovito O. Cla%!io ,as t$e !%l' electe! ma'or o( =asa' Cit' in
t$e Ma' 11 1888 elections. He ass%me! o((ice on 7%l' 1 1888.
)ometime !%ring t$e secon! ,ee+ o( Ma' 1888 t$e c$airs o(
several baranga's in =asa' Cit' gat$ere! to !isc%ss t$e &ossibilit'
o( (iling a &etition (or recall against Ma'or Cla%!io (or loss o(
con(i!ence. On Ma' 18 1888 at t$e resi!ence o( baranga' c$air
Ben9amin Lim 7r. in Baranga' 11 Zone 0 =asa' Cit' several
baranga' c$airs (orme! an a! $oc committee (or t$e &%r&ose o(
convening t$e =-#. -ic$ar! #!vinc%la &rivate res&on!ent in G.-.
No. 105CG5 an! &etitioner in G.-. No. 105710 ,as !esignate!
c$air. On Ma' /8 1888 1571 members o( t$e =-# com&ose! o(
baranga' c$airs +aga,a!s an! sangg%niang +abataan c$airs o(
=asa' Cit' a!o&te! -esol%tion No. 51 )D1888 entitle!
-3)OL@2*ON 2O *N*2*#23 2H3 -3C#LL OF 7OK*2O O. CL#@D*O #)
M#:O- OF =#)#: C*2: FO- LO)) OF CONF*D3NC3. *n a letter !ate!
7%ne /8 1888 #!vinc%la as c$air o( t$e =-# invite! t$e Ma'or
KiceDMa'or )tation Comman!er an! t$irteen ;11< Co%ncilors o(
=asa' Cit' to ,itness t$e (ormal s%bmission to t$e O((ice o( t$e
3lection O((icer on 7%l' / 1888 o( t$e &etition (or recall. #s
sc$e!%le! t$e &etition (or recall ,as (ile! on 7%l' / 1888
accom&anie! b' an a((i!avit o( service o( t$e &etition on t$e O((ice
o( t$e Cit' Ma'or. =%rs%ant to t$e r%les o( t$e COM3L3C co&ies o(
t$e &etition ,ere &oste! on t$e b%lletin boar!s o( t$e local
COM3L3C o((ice t$e Cit' Hall t$e =olice De&artment t$e &%blic
mar+et at Liberta! )t. an! 2a(t #ven%e an! at t$e entrance o( t$e
)ta. Clara C$%rc$ on =. B%rgos )t. all in =asa' Cit'. )%bse.%entl'
a veri(ication o( t$e a%t$enticit' o( t$e signat%res on t$e resol%tion
,as con!%cte! b' Liga'a )ala'on t$e election o((icer (or =asa'
Cit' !esignate! b' t$e COM3L3C. *n its resol%tion o( October 18
1888 t$e COM3L3C grante! t$e &etition (or recall an! !ismisse!
t$e o&&ositions against it. Hence t$ese &etitions. Oral arg%ments
,ere $el! in t$ese cases in Bag%io Cit' on #&ril 0 /555 a(ter
,$ic$ t$e Co%rt b' t$e vote o( 8 to G o( its members
1
resolve! to
!ismiss t$e &etition in G.-. No. 105CG5 (or lac+ o( s$o,ing t$at t$e
COM3L3C committe! a grave ab%se o( !iscretion. On t$e ot$er
$an! t$e Co%rt %nanimo%sl' !ismisse! t$e &etition in G.-. No.
105710 on t$e gro%n! t$at t$e iss%e raise! t$erein $a! become
moot an! aca!emic.
*ss%es: 1. 6ON t$e ,or! "-ecall" in =aragra&$ ;b< o( c70 o( t$e LGC
*ncl%!es t$e Convening o( t$e =re&arator' -ecall #ssembl' an! t$e
Filing b' it o( a -ecall -esol%tion.
-ecall is a &rocess ,$ic$ begins ,it$ t$e convening o( t$e
&re&arator' recall assembl' or t$e gat$ering o( t$e
signat%res at least /CY o( t$e registere! voters o( a local
government %nit an! t$en &rocee!s to t$e (iling o( a recall
resol%tion or &etition ,it$ t$e COM3L3C t$e veri(ication o(
s%c$ resol%tion or &etition t$e (i4ing o( t$e !ate o( t$e
recall election an! t$e $ol!ing o( t$e election on t$e
sc$e!%le! !ate.
Ho,ever as %se! in &aragra&$ ;b< o( c70 "recall" re(ers to
t$e election itsel( b' means o( ,$ic$ voters !eci!e ,$et$er
t$e' s$o%l! retain t$eir local o((icial or elect $is
re&lacement. )everal reasons can be cite! in s%&&ort o( t$is
concl%sion.
c70 !eals ,it$ restrictions on t$e &o,er o( recall. *t is in (act
entitle! "Limitations on -ecall." On t$e ot$er $an! cG8
&rovi!es t$at "t$e &o,er o( recall . . . s$all be e4ercise! b'
t$e registere! voters o( a local government %nit to ,$ic$
t$e local elective o((icial belongs." )ince t$e &o,er veste!
on t$e electorate is not t$e &o,er to initiate recall
&rocee!ings b%t t$e &o,er to elect an o((icial into o((ice t$e
limitations in c70 cannot be !eeme! to a&&l' to t$e entire
recall &rocee!ings. *n ot$er ,or!s t$e term "recall" in
&aragra&$ ;b< re(ers onl' to t$e recall election e4cl%!ing
t$e convening o( t$e =-# an! t$e (iling o( a &etition (or
recall ,it$ t$e COM3L3C or t$e gat$ering o( t$e signat%res
o( at least /C Y o( t$e voters (or a &etition (or recall. 2$%s
t$ere ma' be several =-#s $el! or &etitions (or recall (ile!
,it$ t$e COM3L3C S t$ere is no legal limit on t$e n%mber o(
times s%c$ &rocesses ma' be resorte! to. 2$ese are merel'
&reliminar' ste&s (or t$e &%r&ose o( initiating a recall. 2$e
limitations in c70 a&&l' onl' to t$e e4ercise o( t$e &o,er o(
recall ,$ic$ is veste! in t$e registere! voters. *t is t$is S
an! not merel' t$e &reliminar' ste&s re.%ire! to be ta+en to
initiate a recall S ,$ic$ &aragra&$ ;b< o( c70 see+s to limit
b' &rovi!ing t$at no recall s$all ta+e &lace ,it$in one 'ear
(rom t$e !ate o( ass%m&tion o( o((ice o( an elective local
o((icial.
Garcia v. COM3L3C: ,$ere t,o ob9ections ,ere raise!
against t$e legalit' o( =-#s: ;1< t$at even t$e &o,er to
/G5
initiate recall &rocee!ings is t$e sole &rerogative o( t$e
electorate ,$ic$ cannot be !elegate! to =-#s an! ;/< t$at
b' vesting t$is &o,er in a =-# t$e la, in e((ect
%nconstit%tionall' a%t$oriBes it to s$orten t$e term o( o((ice
o( inc%mbent elective local o((icials. Bot$ ob9ections ,ere
!ismisse! on t$e gro%n! t$at t$e $ol!ing o( a =-# is not t$e
recall itsel(. 6it$ res&ect to t$e (irst ob9ection it ,as $el!
t$at it is t$e &o,er to recall an! not t$e &o,er to initiate
recall t$at t$e Constit%tion gave to t$e &eo&le. 6it$ res&ect
to t$e secon! ob9ection it ,as $el! t$at a recall resol%tion
"merel' sets t$e stage (or t$e o((icial concerne! be(ore t$e
trib%nal o( t$e &eo&le so $e can 9%sti(' ,$' $e s$o%l! be
allo,e! to contin%e in o((ice. UB%t %ntilV t$e &eo&le ren!er
t$eir sovereign 9%!gment t$e o((icial concerne! remains in
o((ice . . . ."
*( t$ese &reliminar' &rocee!ings !o not &ro!%ce a !ecision
b' t$e electorate on ,$et$er t$e local o((icial concerne!
contin%es to en9o' t$e con(i!ence o( t$e &eo&le t$en t$e
&ro$ibition in &aragra&$ ;b< against t$e $ol!ing o( a recall
e4ce&t one 'ear a(ter t$e o((icialHs ass%m&tion o( o((ice
cannot a&&l' to s%c$ &rocee!ings.
2$e secon! reason ,$' t$e term "recall" in &aragra&$ ;b<
re(ers to recall election is to be (o%n! in t$e &%r&ose o( t$e
limitation itsel(. 2$ere are t,o limitations in &aragra&$ ;b<
on t$e $ol!ing o( recalls: ;1< t$at no recall s$all ta+e &lace
,it$in one 'ear (rom t$e !ate o( ass%m&tion o( o((ice o( t$e
o((icial concerne! an! ;/< t$at no recall s$all ta+e &lace
,it$in one 'ear imme!iatel' &rece!ing a reg%lar local
election.
2$e &%r&ose o( t$e (irst limitation is to &rovi!e a reasonable
basis (or 9%!ging t$e &er(ormance o( an elective local
o((icial. *n t$e Bo,er case cite! b' t$is Co%rt in #ngob%ng v.
COM3L3C it ,as $el! t$at "2$e onl' logical reason ,$ic$
,e can ascribe (or re.%iring t$e electors to ,ait one 'ear
be(ore petitioning (or a recall election is to &revent
&remat%re action on t$eir &art in voting to remove a ne,l'
electe! o((icial be(ore $aving $a! s%((icient time to eval%ate
t$e so%n!ness o( $is &olicies an! !ecisions." 2$e oneD'ear
limitation ,as rec+one! as o( t$e (iling o( a &etition (or recall
beca%se t$e M%nici&al Co!e involve! in t$at case e4&ressl'
&rovi!e! t$at "no removal &etition s$all be (ile! against an'
o((icer or %ntil $e $as act%all' $el! o((ice (or at least t,elve
mont$s." B%t $o,ever t$e &erio! o( &ro$ibition is
!etermine! t$e &rinci&le anno%nce! is t$at t$e &%r&ose o(
t$e limitation is to &rovi!e a reasonable basis (or eval%ating
t$e &er(ormance o( an elective local o((icial. Hence in t$is
case as long as t$e election is $el! o%tsi!e t$e oneD'ear
&erio! t$e &reliminar' &rocee!ings to initiate a recall can
be $el! even be(ore t$e en! o( t$e (irst 'ear in o((ice o( a
local o((icial.
*t cannot be arg%e! t$at to allo, recall &rocee!ings to be
initiate! be(ore t$e o((icial concerne! $as been in o((ice (or
oneD'ear ,o%l! be to allo, $im to be 9%!ge! ,it$o%t
s%((icient basis. #s alrea!' state! it is not t$e $ol!ing o(
=-# nor t$e a!o&tion o( recall resol%tions t$at &ro!%ces a
9%!gment on t$e &er(ormance o( t$e o((icial concerne!A it is
t$e vote o( t$e electorate in t$e election t$at !oes.
2$ere(ore as long as t$e recall election is not $el! be(ore
t$e o((icial concerne! $as com&lete! one 'ear in o((ice $e
,ill not be 9%!ge! on $is &er(ormance &remat%rel'.
2$ir! to constr%e t$e term "recall" in &aragra&$ ;b< as
incl%!ing t$e convening o( t$e =-# (or t$e &%r&ose o(
!isc%ssing t$e &er(ormance in o((ice o( elective local o((icials
,o%l! be to %n!%l' restrict t$e constit%tional rig$t o( s&eec$
an! o( assembl' o( its members. 2$e &eo&le cannot 9%st be
as+e! on t$e !a' o( t$e election to !eci!e on t$e
&er(ormance o( t$eir o((icials. 2$e cr'stalliBation an!
(ormation o( an in(orme! &%blic o&inion ta+es time. 2o $ol!
t$ere(ore t$at t$e (irst limitation in &aragra&$ ;b< incl%!es
t$e $ol!ing o( assemblies (or t$e e4c$ange o( i!eas an!
o&inions among citiBens is to %n!%l' c%rtail one o( t$e most
c$eris$e! rig$ts in a (ree societ'. *n!ee! it is ,rong to
ass%me t$at s%c$ assemblies ,ill al,a's event%ate in a
recall election. 2o t$e contrar' t$e' ma' res%lt in t$e
e4&ression o( con(i!ence in t$e inc%mbent.
=%no !issent: t$e &%r&ose o( t$e oneD'ear &erio! in
&aragra&$ ;b< is to &rovi!e t$e local o((icial concerne! a
"&erio! o( re&ose" !%ring ,$ic$ "U$isV attention s$o%l! not
be !istracte! b' an' im&e!iment es&eciall' b' !ist%rbance
!%e to &olitical &artisans$i&." @n(ort%natel' t$e la, cannot
reall' &rovi!e (or a &erio! o( $one'moon or moratori%m in
&olitics. From t$e !a' an elective o((icial ass%mes o((ice $is
acts become s%b9ect to scr%tin' an! criticism an! it is not
al,a's eas' to !etermine ,$en criticism o( $is &er(ormance
/G1
is &oliticall' motivate! an! ,$en it is not. 2$e onl'
sa(eg%ar! against t$e bane(%l an! enervating e((ects o(
&artisan &olitics is t$e goo! sense an! sel( restraint o( t$e
&eo&le an! its lea!ers against s%c$ s$ortcomings o( o%r
&olitical s'stem. # res&ite (rom &artisan &olitics ma' $ave
t$e inci!ental e((ect o( &rovi!ing res&ite (rom &artisans$i&
b%t t$at is not reall' t$e &%r&ose o( t$e limitation on recall
%n!er t$e la,. 2$e limitation is onl' inten!e! to &rovi!e a
s%((icient basis (or eval%ating an! 9%!ging t$e &er(ormance
o( an electe! local o((icial. *n an' event it is arg%e! t$at t$e
9%!gments o( =-#s are not "as &oliticall' %nassailable as
recalls initiate! !irectl' b' t$e &eo&le." 7%stice =%no cites
t$e "embarrassing re&%!iation b' t$e &eo&le o( UMaloocan
Cit'HsV =re&arator' -ecall #ssembl'" ,$en instea! o(
o%sting Ma'or -e' MalonBo t$e' reelecte! $im.
*t is no !is&aragement o( t$e =-# t$at in t$e ens%ing
election t$e local o((icial ,$ose recall is so%g$t is act%all'
reelecte!. La,s converting m%nici&alities into cities an!
&rovi!ing (or t$e $ol!ing o( &lebiscites !%ring ,$ic$ t$e
.%estion o( cit'$oo! is s%bmitte! to t$e &eo&le (or t$eir
a&&roval are not al,a's a&&rove! b' t$e &eo&le. :et no
one can sa' t$at Congress is not a goo! 9%!ge o( t$e ,ill o(
t$e voters in t$e localit'. *n t$e case o( recall elections in
Maloocan Cit' $a! it been s$o,n t$at t$e =-# ,as resorte!
to onl' beca%se t$ose be$in! t$e move to o%st t$e
inc%mbent ma'or (aile! to obtain t$e signat%res o( /CY o(
t$e voters o( t$at cit' to a &etition (or $is recall t$ere ma'
be some &la%sibilit' (or t$e claim t$at =-#s are not as goo!
a ga%ge o( t$e &eo&leHs ,ill as are t$e /C Y o( t$e voters.
-ecalls initiate! !irectl' b' /CY o( t$e registere! voters o( a
local government %nit cannot be more re&resentative o( t$e
sentiments o( t$e &eo&le t$an t$ose initiate! b' =-#s ,$ose
members re&resent t$e entire electorate in t$e local
government %nit. Koters ,$o !irectl' initiate recalls are 9%st
as v%lnerable to &olitical mane%verings or mani&%lations as
are t$ose com&osing =-#s.
2$e .%estion $ere is not ,$et$er recalls initiate! b' /CY o(
t$e voters are better. 2$e iss%e is ,$et$er t$e oneD'ear
&erio! o( limitation in &aragra&$ ;b< incl%!es t$e convening
o( t$e =-#. Given t$at .%estion ,ill convening t$e =-#
o%tsi!e t$is &erio! ma+e it an' more re&resentative o( t$e
&eo&le as t$e &etition (ile! b' /CY o( t$e registere! voters
is claime! to beT
#s t$e recall election in =asa' Cit' is set on #&ril 1C /555
more t$an one 'ear a(ter &etitioner ass%me! o((ice as
ma'or o( t$at cit' ,e $ol! t$at t$ere is no bar to its $ol!ing
on t$at !ate.
/. 6ON t$e =$rase "-eg%lar Local 3lection" in t$e )ame
=aragra&$ ;b< o( c70 o( t$e LGC incl%!es t$e 3lection =erio!
(or t$at -eg%lar 3lection or )im&l' t$e Date o( )%c$
3lection.
=: !ate set b' t$e COM3L3C (or t$e recall election is ,it$in
t$e secon! &erio! o( &ro$ibition in &aragra&$ ;b<. He arg%es
t$at t$e &$rase "reg%lar local elections" in &aragra&$ ;b<
!oes not onl' mean "t$e !a' o( t$e reg%lar local election"
,$ic$ (or t$e 'ear /551 is Ma' 10 b%t t$e election &erio!
as ,ell ,$ic$ is normall' at least (ort' (ive ;0C< !a's
imme!iatel' be(ore t$e !a' o( t$e election. Hence $e
conten!s t$at beginning Marc$ 15 /555 no recall election
ma' be $el!.
2$is contention is %ntenable. 2$e la, is %nambig%o%s in
&rovi!ing t$at "UnVo recall s$all ta+e &lace ,it$in . . . one ;1<
'ear imme!iatel' &rece!ing a reg%lar local election." Ha!
Congress inten!e! t$is limitation to re(er to t$e cam&aign
&erio! ,$ic$ &erio! is !e(ine! in t$e Omnib%s 3lection
Co!e it co%l! $ave e4&ressl' sai! so.
=>s inter&retation ,o%l! severel' limit t$e &erio! !%ring
,$ic$ a recall election ma' be $el!. #ct%all' beca%se no
recall election ma' be $el! %ntil one 'ear a(ter t$e
ass%m&tion o( o((ice o( an elective local o((icial &res%mabl'
on 7%ne 15 (ollo,ing $is election t$e (ree &erio! is onl' t$e
&erio! (rom 7%l' 1 o( t$e (ollo,ing 'ear to abo%t t$e mi!!le
o( Ma' o( t$e s%ccee!ing 'ear. 2$is is a &erio! o( onl' nine
mont$s an! 1C !a's more or less. 2o constr%e t$e secon!
limitation in &aragra&$ ;b< as incl%!ing t$e cam&aign &erio!
,o%l! re!%ce t$is &erio! to eig$t mont$s. )%c$ an
inter&retation m%st be re9ecte! beca%se it ,o%l! !evitaliBe
t$e rig$t o( recall ,$ic$ is !esigne! to ma+e local
government %nits "more res&onsive an! acco%ntable."
*n!ee! t$ere is a !istinction bet,een election &erio! an!
cam&aign &erio!. @n!er t$e Omnib%s 3lection Co!e %nless
ot$er,ise (i4e! b' t$e COM3L3C t$e election &erio!
commences ninet' ;85< !a's be(ore t$e !a' o( t$e election
/G/
an! en!s t$irt' ;15< !a's t$erea(ter. 2$%s to (ollo,
&etitionerHs inter&retation t$at t$e secon! limitation in
&aragra&$ ;b< incl%!es t$e "election &erio!" ,o%l!
emasc%late even more a vital rig$t o( t$e &eo&le.
/. 6ON t$e -ecall -3)OL@2*ON ,as )igne! b' a Ma9orit' o(
t$e =-# an! D%l' Keri(ie!.
=: a ma9orit' o( t$e signat%res o( t$e members o( t$e =-#
,as not obtaine! beca%se 70 members !i! not reall' sign
t$e recall resol%tion. #ccor!ing to &etitioner t$e 70 merel'
signe! t$eir names on &ages 80D150 o( t$e resol%tion to
signi(' t$eir atten!ance an! not t$eir conc%rrence.
=etitioner claims t$at t$is is s$o,n b' t$e ,or!
"#tten!ance" ,ritten b' $an! at t$e to& o( t$e &age on
,$ic$ t$e signat%res o( t$e 70 begin.
2$is contention $as no basis. 2o be s%re t$is claim is being
raise! (or t$e (irst time in t$is case. *t ,as not raise! be(ore
t$e COM3L3C in ,$ic$ t$e claim ma!e b' &etitioner ,as
t$at some o( t$e names in t$e &etition ,ere !o%ble entries
t$at some members $a! ,it$!ra,n t$eir s%&&ort (or t$e
&etition an! t$at 6enceslao 2rini!a!Hs &en!ing election
&rotest ,as a &re9%!icial .%estion ,$ic$ m%st (irst be
resolve! be(ore t$e &etition (or recall co%l! be given !%e
co%rse.
#lt$o%g$ t$e ,or! "#tten!ance" a&&ears at t$e to& o( t$e
&age it is a&&arent t$at it ,as ,ritten b' mista+e beca%se it
,as crosse! o%t b' t,o &arallel lines !ra,n across it.
#&&arentl' it ,as mista+en (or t$e atten!ance s$eet ,$ic$
is a se&arate !oc%ment. *t is abs%r! to believe t$at t$e 70
members o( t$e =-# ,$o signe! t$e recall resol%tion
signi(ie! t$eir atten!ance at t$e meeting t,ice. *t is more
&robable to believe t$at t$e' signe! &ages 80D150 to signi('
t$eir conc%rrence in t$e recall resol%tion o( ,$ic$ t$e &ages
in .%estion are &art.
Aormeo v. COM%L%C /supra- see p. 0ED1
(ocrates v. COM%L%C /supra- see p. 05C1
Menez v. Civil (ervice Commission
Facts: On 7%ne 7 1880 t$en #cting -egister o( Dee!s o( W%eBon
Cit' Colo'an (ile! an a!ministrative com&laint against Men!eB a
legal researc$ assistant in t$e W%eBon Cit' O((ice o( t$e Cit'
#ttorne' (or Gross Miscon!%ct an! Dis$onest' allege!l' (or $aving
torn o(( a &ortion o( 2rans(er Certi(icate o( 2itle No. /58/87 (rom
t$e registr' boo+ o( W%eBon Cit' an! (or $aving &oc+ete! it. #(ter
t$ree mont$s o( investigation t$en W%eBon Cit' Ma'or -o!rig%eB
!ismisse! t$e sai! com&laint against t$e &etitioner (or ins%((icienc'
o( evi!ence. Colo'an a&&eale! to t$e M)=B ,$ic$ (o%n! Men!eB
g%ilt' as c$arge! an! !ismisse! (rom t$e service. )ai! !ecision ,as
a((irme! b' t$e C)C on a&&eal. M- ;Colo'an not &ro&er &art'
e4oneration b' t$e cit' ma'or is %na&&ealable &%rs%ant to )ection
17 &aragra&$ ;b< o( =.D. 857<: !enie! t$ere is not$ing in t$e sai!
la, ,$ic$ &recl%!es an a&&eal (rom t$e !ecision o( t$e !isci&lining
a%t$orities to !etermine among ot$ers ,$et$er t$e !ecision
ren!ere! is s%&&orte! b' t$e (acts on recor! an! t$e la,.
*ss%e: 6ON Men!eB $as t$e rig$t to a&&eal.
-ig$t to a&&eal is merel' a stat%tor' &rivilege an! ma' be
e4ercise! onl' in t$e manner an! in accor!ance ,it$ t$e
&rovision o( la,.
# c%rsor' rea!ing o( =.D. 857 ot$er,ise +no,n as "2$e
=$ili&&ine Civil )ervice La," s$o,s t$at sai! la, !oes not
contem&late a revie, o( !ecisions e4onerating o((icers or
em&lo'ees (rom a!ministrative c$arges.
)ection 17 &aragra&$ ;a<: 2$e Commission s$all !eci!e %&on
a&&eal all a!ministrative !isci&linar' cases involving t$e
im&osition o( a &enalt' o( s%s&ension (or more t$an t$irt'
!a's or (ine in an amo%nt e4cee!ing t$irt' !a'sH salar'
!emotion in ran+ or salar' or trans(er removal or !ismissal
(rom o((ice.
)ai! &rovision m%st be rea! toget$er ,it$ )ection 18
&aragra&$ ;a< o( =.D 85C ,$ic$ contem&lates: #&&eals
,$ere allo,able s$all be ma!e b' t$e &art' a!versel'
a((ecte! b' t$e !ecision.
2$e &$rase "&art' a!versel' a((ecte! b' t$e !ecision" re(ers
to t$e government em&lo'ee against ,$om t$e
a!ministrative case is (ile! (or t$e &%r&ose o( !isci&linar'
action ,$ic$ ma' ta+e t$e (orm o( s%s&ension !emotion in
ran+ or salar' trans(er removal or !ismissal (rom o((ice. *n
t$e instant case Colo'an ,$o (ile! t$e a&&eal cannot be
consi!ere! an aggrieve! &art' beca%se $e is not t$e
res&on!ent in t$e a!ministrative case belo,.
/G1
=%rs%ant to )ection 17 &aragra&$ ;b< o( =.D. 857 t$e cit'
ma'or as $ea! o( t$e cit' government is em&o,ere! to
en(orce 9%!gment ,it$ (inalit' on lesser &enalties li+e
s%s&ension (rom ,or+ (or one mont$ an! (or(eit%re o( salar'
e.%ivalent to one mont$ against erring em&lo'ees.
B' in(erence or im&lication t$e reme!' o( a&&eal ma' be
availe! o( onl' in a case ,$ere t$e res&on!ent is (o%n!
g%ilt' o( t$e c$arges (ile! against $im. B%t ,$en t$e
res&on!ent is e4onerate! o( sai! c$arges as in t$is case
t$ere is no occasion (or a&&eal.
Macalingcag an Carlos v. Chang
Facts: On October G 1888 Carlos signe! a (ormal a!ministrative
c$arge a&&rove! b' Macalincag (or !is$onest' neglect o( !%t' an!
acts &re9%!icial to t$e best interest o( t$e service. *t ,as allege!
t$at C$ang !isb%rse! (%n!s inviolation o( t$e Omnib%s 3lection
Co!e inc%rre! cas$ over!ra(ts in violation o( )ections 01 an! 00 o(
=D 077 an! )ection 0;1< o( =D 100C trans(erre! t$e amo%nt o(
=187708/.55 (rom t$e 2reas%rer?Cas$ierHs sa(e to t$e -ealt' 2a4
DivisionHs sa(e t$%s s%b9ecting sai! m%nici&al (%n!s to &ossible
lossA an! t$at s$e contin%all' (aile! to remit to t$e B%rea% o(
2reas%r' t$e national collection. 2$e basis o( t$e (ormal c$arge b'
&etitioner Carlos ,as t$e &reliminar' eval%ation o( t$e CO# -e&ort
!ate! 7an%ar' 18 1888 an! t$e a((i!avitDcom&laints o( Co%ncilor
-oberto Brillante !ate! #&ril /7 1888 an! Ma' /1 1888. On t$e
same !ate October C 1888 &etitioner Macalincag iss%e! an Or!er
o( =reventive )%s&ension against C$ang. #lso on October G 1888
&etitioner Macalincag sent a letter to t$e "Governor Metro Manila
Commission S #ttn: t$e O((icerDinDC$arge MMC Finance O((ice"
see+ing t$e im&lementation o( t$e Or!er o( =reventive )%s&ension
!ate! October G 1888 an! recommen!ing t$at an O((icerDinD
C$arge be imme!iatel' !esignate! (rom t$e ran+s o( .%ali(ie!
M%nici&al 2reas%rers an! #ssistant M%nici&al 2reas%rers in Metro
Manila. B' virt%e o( t$e sai! letter t$e O((icerDinDC$arge MMC
Finance O((ice (%rnis$e! res&on!ent C$ang b' or!inar' mail ,it$
a co&' o( t$e Or!er o( =reventive )%s&ension also !ate! October G
1888. On November 15 1888 res&on!ent C$ang (ile! a &etition (or
&ro$ibition ,it$ ,rit o( &reliminar' in9%nction be(ore t$e -egional
2rial Co%rt ;-2C< o( Ma+ati against &etitioners Macalincag an!
Carlos. 2-O on &reventive s%s&ension grante!. 2C: !enie! C$ang
a&&lication (or a ,rit o( &reliminar' in9%nction an! s%staine! t$e
&o,er o( t$e )ecretar' o( Finance to iss%e t$e Or!er o( =reventive
)%s&ension. M-: C$ang raise! a ne, arg%ment b' invo+ing )ection
8 34ec%tive Or!er No. 18/ entitle! "Constit%ting t$e Metro&olitan
Manila #%t$orit' &rovi!ing (or its &o,ers an! (%nctions an! (or
ot$er &%r&oses." a&&lication (or a ,rit o( &reliminar' in9%nction
grante!. 2C: res&on!ents &ermanentl' !esist (rom en(orcing t$e
Or!er o( =reventive )%s&ension. Hence t$is &etition (or revie, on
certiorari.)econ! Division o( t$is Co%rt: !enie! t$e &etition (or
$aving been (ile! o%t o( time b%t t$e same ,as reinstate! in a
resol%tion !ate! #&ril 1C 1881. *n t$e resol%tion !ate! 7%l' 15
1881 t$e )econ! Division o( t$is Co%rt gave !%e co%rse to t$e
&etition an! re.%ire! bot$ &arties to (ile t$eir sim%ltaneo%s
memoran!a.
*ss%e: 1. 6ON t$e )ecretar' o( Finance $as 9%ris!iction to iss%e an
Or!er o( =reventive )%s&ension against t$e acting m%nici&al
treas%rer o( Ma+ati Metro Manila.
=: t$e Or!er o( =reventive )%s&ension became e((ective
%&on recei&t t$ereo( b' res&on!ent C$ang an! not %&on t$e
!esignation o( an o((icerDinDc$arge to re&lace $imA t$at t$e
Or!er o( =reventive )%s&ension !ate! October G 1888
became e((ective be(ore t$e iss%ance o( 34ec%tive Or!er No.
18/ an! t$ere(ore can no longer be en9oine! b' reason o(
t$e allege! trans(er o( t$e &o,er to s%s&en! (rom t$e
)ecretar' o( Finance to t$e =resi!ent o( t$e -e&%blic o( t$e
=$ili&&ines an! t$at t$e &o,er to s%s&en! an! remove
m%nici&al o((icials is not an inci!ent o( t$e &o,er to a&&oint.
-: a government o((icer is not s%s&en!e! %ntil someone $as
ass%me! t$e &ost an! t$e o((icer s%b9ect o( t$e s%s&ension
or!er $as cease! &er(orming $is o((icial (%nctionA t$at t$e
im&lementation o( t$e .%estione! s%s&ension or!er ,as
overta+en b' t$e iss%ance o( 34ec%tive Or!er No. 18/
creating t$e Metro&olitan Manila #%t$orit' an! t$at t$e
&o,er to !isci&line is veste! solel' on t$e &erson ,$o $as
t$e &o,er to a&&oint.
=reventive )%s&ension is governe! b' )ec. 01 o( =.D. 857 or
t$e Civil )ervice La, ,$ic$ &rovi!es: )ec. 01. =reventive
)%s&ension. S 2$e &ro&er !isci&lining a%t$orit' ma'
&reventivel' s%s&en! an' s%bor!inate o((icer or em&lo'ee
%n!er $is a%t$orit' &en!ing an investigation i( t$e c$arge
against s%c$ o((icer or em&lo'ee involves !is$onest'
o&&ression or grave miscon!%ct or neglect in t$e
/G0
&er(ormance o( !%t' or i( t$ere are reasons to believe t$at
t$e res&on!ent is g%ilt' o( c$arges ,$ic$ ,o%l! ,arrant $is
removal (rom service. @n!er t$e a(oresai! la, !esignation
o( t$e re&lacement is not a re.%irement to give e((ect to t$e
&reventive s%s&ension.
LGC ;B= 117< )ec. 1CG. 23M=O-#-: D*)#B*L*2:. S *n t$e
event o( inabilit' o( t$e treas%rer to !isc$arge t$e !%ties o(
$is o((ice on acco%nt o( a tri& on o((icial b%siness absence
on leave sic+ness s%s&ension or ot$er tem&orar'
!isabilit' t$e assistant m%nici&al treas%rer or in $is
absence t$e treas%r' o((icial ne4t in ran+ in t$e m%nici&alit'
s$all !isc$arge t$e !%ties o( t$e o((ice s%b9ect to e4isting
la,s. )ection /11;/<: @ntil ot$er,ise &rovi!e! b' la,
not$ing in t$is co!e s$all be %n!erstoo! to amen! or re&eal
t$e &ertinent &rovisions o( =.D. No. 8/0 an! B= /5 an! all
&resi!ential !ecrees an! iss%ances relevant to Metro&olitan
Manila an! t$e )angg%niang =am&oo+ o( -egions *J an! J**.
Or!er o( =reventive )%s&ension o( res&on!ent C$ang
became e((ective %&on $is recei&t t$ereo( ,$ic$ is
&res%me! ,$en $e (ile! a com&laint in t$e trial co%rt
&reventing t$e im&lementation o( s%c$ Or!er o( )%s&ension.
Ot$er,ise state! t$e !esignation o( t$e OFF*C3-D*ND
CH#-G3 to re&lace res&on!ent C$ang is immaterial to t$e
e((ectivit' o( t$e latterHs s%s&ension. # contrar' vie, ,o%l!
ren!er n%gator' t$e ver' &%r&ose o( &reventive s%s&ension.
/. 6ON 3O18/ gave rise to t$e creation o( t$e Metro&olitan
Manila #%t$orit' an! veste! in t$e =resi!ent o( t$e -e&%blic
o( t$e =$ili&&ines t$e &o,er to a&&oint m%nici&al treas%rers
in Metro Manila.
)ec. 8. #ll cit' an! m%nici&al treas%rers m%nici&al
assessors an! t$eir assistants as ,ell as ot$er o((icials
,$ose a&&ointment is c%rrentl' veste! %&on t$e
Metro&olitan Manila Commission s$all be a&&ointe! b' t$e
=resi!ent o( t$e =$ili&&ines %&on recommen!ation o( t$e
Co%ncil s%b9ect to t$e Civil )ervice la, r%les an!
reg%lations.
Be(ore t$e &o,er to a&&oint t$e a(oresai! &%blic o((icials
,as veste! in t$e =rovincial 2reas%rers an! #ssessors o( t$e
M%nici&alities concerne! %n!er =.D. No. 077 an! later
trans(erre! to t$e Commissioner o( Finance %n!er =.D. No.
8/1 b%t %n!er bot$ !ecrees t$e &o,er o( a&&ointment ,as
ma!e s%b9ect to Civil )ervice La,s an! t$e a&&roval o( t$e
)ecretar' o( Finance.
2$e intention o( t$e a(oresai! legislations to (ollo, t$e Civil
)ervice La,s -%les an! -eg%lations is %nmista+able. 2$e
&o,er to !isci&line is s&eci(icall' veste! %n!er )ec. 17 o(
=.D. No. 857 in $ea!s o( !e&artments agencies an!
instr%mentalities &rovinces an! c$artere! cities ,$o $ave
original 9%ris!iction to investigate an! !eci!e on matters
involving !isci&linar' action. )tate! !i((erentl' t$e' are t$e
&ro&er !isci&lining a%t$orit' re(erre! to in )ec. 01 o( t$e
same la,.2$e O((ice o( t$e M%nici&al 2reas%rer is
%n.%estionabl' %n!er t$e De&artment o( Finance as
&rovi!e! (or in )ec. 1 =.D. No. 077. Hence t$e )ecretar' o(
Finance is t$e &ro&er !isci&lining a%t$orit' to iss%e t$e
&reventive s%s&ension or!er. More s&eci(icall' acting
)ecretar' o( Finance Macalincag acte! ,it$in $is
9%ris!iction in iss%ing t$e a(oresai! or!er. 3ven ass%ming
t$at t$e &o,er to a&&oint incl%!es t$e &o,er to !isci&line
as arg%e! b' C$ang acting )ecretar' Macalincag as
)ecretar' o( Finance is an alter ego o( t$e =resi!ent an!
t$ere(ore it is ,it$in $is a%t$orit' as an alter ego to
&reventivel' s%s&en! res&on!ent C$ang.
(alalima v. Guingona /supra- see p.0D51
Garcia v. Pa3aro an the Cit# o! *agupan
Facts: Garcia is a -even%e Collector a&&ointe! to t$at &osition b'
t$en Cit' Ma'or Manaois. He ,as or!ere! s%s&en!e! b' Cit'
2reas%rer =a9aro (rom 7%ne 1 1885 to Marc$ 1C 188/ an! !irecte!
t$e ,it$$ol!ing o( $is salar' beca%se o( t$e Formal C$arge (ile!
against $im. =etitioner $as been rating @nsatis(actor' in $is
&er(ormance (or several semesters ,$ic$ is t$e reason a UFormalV
C$arge ,as (ile! against &etitioner receive! b' $im on 7%ne 1
1885 15:55 a.m. an! as a matter o( &roce!%re i( t$e c$arge is a
ma9or o((ense b' civil service la,s $e ,as &reventivel' s%s&en!e!
(or ninet' ;85< !a's also !%l' receive! b' Mr. Garcia on 7%ne 0
1885 at /:55 &.m. 2$en an investigation ,as sc$e!%le! an! a
s%b&oena ,as iss%e! to Mr. Garcia to a&&ear an! testi(' on #%g%st
1C 1885 !%l' receive! b' $im on #%g%st 1 1885 8:CC. #gain Mr.
Garcia !i! not #ns,er an! re(%se! to $onor t$e s%b&oena to s%bmit
$imsel( (or investigation. )o $e &rocee!e! ,it$ e4D&arte
/GC
investigation an! gat$ere! an! s%bmitte! testimonies to s%&&ort
t$e allegations in t$e Formal C$arge t$en s%bmitte! t$e res%lt o(
t$eir (in!ings to t$e De&artment o( Finance (or !ecision. # Decision
,as &rom%lgate! b' t$e De&artment o( Finance on #%g%st 1 1881.
2$e matter o( &reventive s%s&ension o( Mr. Garcia ,as s%bmitte!
to t$e -egional Director B%rea% o( Local Government Finance
,$ic$ ,as ](avorabl' a&&rove!> b' t$e -egional Director. C#:
=a9aro ,as veste! ,it$ legal &o,er an! a%t$orit' to instit%te
!isci&linar' action against s%bor!inate o((icers an! em&lo'ees.
Hence t$is =etition.
*ss%es: 1. 6ON t$e Cit' 2reas%rer ma' !isci&line Garcia. :3).
%n!er t$e ol! an! t$e &resent LGCs a&&ointive o((icers an!
em&lo'ees o( local government %nits are covere! b' t$e
Civil )ervice La,A an! s%c$ r%les reg%lations an! ot$er
iss%ances !%l' &rom%lgate! &%rs%ant t$ereto %nless
ot$er,ise s&eci(ie!. Moreover t$e investigation an! t$e
a!9%!ication o( a!ministrative com&laints against a&&ointive
local o((icials an! em&lo'ees as ,ell as t$eir s%s&ension
an! removal s$all be in accor!ance ,it$ t$e Civil )ervice
La, an! r%les an! ot$er &ertinent la,s.
#!ministrative Co!e o( 1887 s&eci(icall' Boo+ K on t$e civil
service is t$e &rimar' la, governing a&&ointive o((icials an!
em&lo'ees in t$e government. Gro%n!s (or !isci&lining: 1<
,$en t$e c$arge is serio%s an! t$e evi!ence o( g%ilt is
strongA ;/< ,$en t$e res&on!ent is a reci!ivist an! ;1< ,$en
t$e res&on!ent is notorio%sl' %n!esirable.
2$e &o,er to !isci&line is s&eci(icall' grante! b' )ection 07
o( t$e #!ministrative Co!e o( 1887 to $ea!s o( !e&artments
agencies an! instr%mentalities &rovinces an! cities. On t$e
ot$er $an! t$e &o,er to commence a!ministrative
&rocee!ings against a s%bor!inate o((icer or em&lo'ee is
grante! b' )ection 10 o( t$e Omnib%s -%les *m&lementing
Boo+ K o( t$e sai! #!ministrative Co!e to t$e secretar' o( a
!e&artment t$e $ea! o( o((ice o( e.%ivalent ran+ t$e $ea!
o( a local government %nit t$e c$ie( o( an agenc' t$e
regional !irector or a &erson ,it$ a s,orn ,ritten com&laint.
2$e cit' treas%rer ma' instit%te mot% &ro&io !isci&linar'
&rocee!ings against a s%bor!inate o((icer or em&lo'ee.
Local #!ministrative -eg%lations ;L#-< No. /D8CU//V ,$ic$
,as iss%e! b' t$e Ministr' o( Finance on Marc$ /7 188C
a%t$oriBe! t$e minister ;no, secretar'< o( (inance t$e
regional !irector an! $ea! o( a local treas%r' or an
assessment o((ice to start a!ministrative !isci&linar' action
against o((icers or em&lo'ees s%bor!inate to t$em.
*n t$e case at bar t$e cit' treas%rer is t$e &ro&er
!isci&lining a%t$orit' re(erre! to in )ection 07 o( t$e
#!ministrative Co!e o( 1887. 2$e term Eagenc'F re(ers to
an' o( t$e vario%s %nits o( t$e government incl%!ing a
!e&artment a b%rea% an o((ice an instr%mentalit' a
governmentDo,ne! or controlle! cor&oration or a local
government or a !istinct %nit t$erein. -es&on!ent =a9aro as
t$e cit' treas%rer ,as t$e $ea! o( t$e O((ice o( t$e
2reas%rerA ,$ile &etitioner a senior reven%e collector ,as
an o((icer %n!er $im. 2$%s t$e cit' treas%rer is t$e &ro&er
!isci&lining a%t$orit' ,$o co%l! investigate &etitioner an!
iss%e a &reventive s%s&ension or!er against $im.
=etitioner>s contention t$at it is onl' t$e cit' ma'or ,$o
ma' !isci&line $im is not &ers%asive. )ection 0CC o( t$e
1881 LGC states t$at t$e cit' ma'or Ema' ca%se to be
instit%te! a!ministrative or 9%!icial &rocee!ings against an'
o((icial or em&lo'ee o( t$e cit'.F 2$is r%le is not incongr%ent
,it$ t$e &rovisions o( t$e 1887 #!ministrative Co!e ,$ic$
a%t$oriBes t$e $ea!s o( agencies to !isci&line s%bor!inate
em&lo'ees. Li+e,ise t$e ol! LGC !oes not vest in cit'
ma'ors t$e sole &o,er to !isci&line an! to instit%te criminal
or a!ministrative actions against an' o((icers or em&lo'ees
%n!er t$eir 9%ris!iction. *n (act t$ere is no &rovision %n!er
t$e &resent LGC e4&ressl' rescin!ing t$e a%t$orit' o( t$e
De&artment o( Finance to e4ercise !isci&linar' a%t$orit'
over its em&lo'ees. B' t$e same to+en t$ere is not$ing t$at
&ro$ibits t$e cit' treas%rer (rom (iling a com&laint against
&etitioner.
#s a corollar' t$e &o,er to !isci&line evi!entl' incl%!es t$e
&o,er to investigate. Haga! v. GoBoDDa!ole ,e e4&laine!
t$e rationale (or &reventive s%s&ension as (ollo,s: not being
in t$e nat%re o( a &enalt' a &reventive s%s&ension can be
!ecree! on an o((icial %n!er investigation a(ter c$arges are
bro%g$t an! even be(ore t$e c$arges are $ear!. Nat%rall'
s%c$ a &reventive s%s&ension ,o%l! occ%r &rior to an'
(in!ing o( g%ilt or innocence.F )%s&ension is a &reliminar'
ste& in an a!ministrative investigation. *( a(ter s%c$
investigation t$e c$arges are establis$e! an! t$e &erson
investigate! is (o%n! g%ilt' o( acts ,arranting $is removal
/GG
t$en $e is remove! or !ismisse!. 2$is is t$e &enalt'. 2$ere
is t$ere(ore not$ing im&ro&er in s%s&en!ing an o((icer
&en!ing $is investigation an! be(ore t$e c$arges against
$im are $ear! an! be given o&&ort%nit' to &rove $is
innocence.F
*n t$e &resent case -es&on!ent =a9aro ,as a%t$oriBe! to
iss%e t$e assaile! =reventive )%s&ension Or!er against
&etitioner beca%se t$e latter ,as c$arge! ,it$ gross
neglect o( !%t' re(%sal to &er(orm o((icial !%ties an!
(%nctions an! ins%bor!ination DD gro%n!s t$at allo,e! t$e
iss%ance o( s%c$ Or!er as &rovi!e! b' )ection C1 o( t$e
1887 #!ministrative Co!e. Clearl' t$e cit' treas%rer acte!
,it$in t$e sco&e o( $is &o,er ,$en $e commence! t$e
investigation an! iss%e! t$e assaile! Or!er.
/. 6ON Garcia>s rig$t to !%e &rocess ,as violate! beca%se $e
,as not $ear! !%ring t$e a!ministrative &rocee!ings. NO.
*n an a!ministrative &rocee!ing t$e essence o( !%e &rocess
is sim&l' t$e o&&ort%nit' to e4&lain one>s si!e. )%c$ &rocess
re.%ires notice an! an o&&ort%nit' to be $ear! be(ore
9%!gment is ren!ere!. One ma' be $ear! not solel' b'
verbal &resentation in an oral arg%ment b%t also DD an!
&er$a&s even man' times more cre!itabl' an! &racticabl' DD
t$ro%g$ &lea!ings. )o long as t$e &arties are given t$e
o&&ort%nit' to e4&lain t$eir si!e t$e re.%irements o( !%e
&rocess are satis(actoril' com&lie! ,it$. Moreover t$is
constit%tional man!ate is !eeme! satis(ie! i( a &erson is
grante! an o&&ort%nit' to see+ reconsi!eration o( an action
or a r%ling.
*n t$e case at bar t$e a!ministrative &rocee!ings ,ere
con!%cte! in accor!ance ,it$ t$e &roce!%re set o%t in t$e
1887 #!ministrative Co!e an! ot$er &ertinent la,s. First
&etitioner ,as (%rnis$e! a co&' o( t$e Ma' 15 1885 (ormal
c$arge against $im. )econ! -es&on!ent =a9aro re.%este!
t$e a&&roval o( t$e Or!er o( =reventive )%s&ension in $is
7%ne 1 1885 letter a!!resse! to t$e B%rea% o( Local
Government Finance regional !irector ,$o a&&rove! t$e
Or!er in t$e First *n!orsement !ate! 7%ne 0 1885. 2$ir! a
s%b&oena !ate! 7%l' 11 1885 ,as iss%e! to &etitioner
or!ering $im to testi(' !%ring an investigation on #%g%st 1C
1885. Ho,ever $e a!mitte!l' re(%se! to atten! t$e
investigationA t$%s it ,as con!%cte! e4 &arte. Fo%rt$ t$e
De&artment o( Finance a((irme! -es&on!ent =a9aro>s
(in!ings in its #%g%st 1 1881 Decision.
=arties ,$o c$oose not to avail t$emselves o( t$e
o&&ort%nit' to ans,er c$arges against t$em cannot
com&lain o( a !enial o( !%e &rocess.UCCV =etitioner>s re(%sal
to atten! t$e sc$e!%le! $earings !es&ite !%e notice ,as at
$is o,n &eril.
+avellana v. *)LG an (antos
Facts: Cit' 3ngineer Divinagracia (ile! an a!ministrative case
against #tt'. 7avellana an electe! Cit' Co%ncilor o( Bago Cit'
Negros Occi!ental (or contin%o%sl' engaging in t$e &ractice o( la,
,it$o%t sec%ring a%t$orit' (or t$at &%r&ose (rom t$e -egional
Director De&artment o( Local Government as re.%ire! b' DLG
Memoran!%m Circ%lar No. 85D18 in relation to DLG Memoran!%m
Circ%lar No. 70DC8 o( t$e same !e&artment. 7avellana also assails
t$e constit%tionalit' o( Memoran!%m Circ%lars Nos. 85D18 an! 85D
on t$e gro%n! t$at t$e )%&reme Co%rt $as t$e sole an! e4cl%sive
a%t$orit' to reg%late t$e &ractice o( la,.
*ss%e: 6ON t$e D*LG committe! a grave ab%se o( !iscretion in
iss%ing t$e .%estione! DLG Circ%lars Nos. 85D15 an! 85D81 an! in
!en'ing &etitionerHs motion to !ismiss t$e a!ministrative c$arge
against $im.
Com&laints against &%blic o((icers an! em&lo'ees relating or
inci!ental to t$e &er(ormance o( t$eir !%ties are necessaril'
im&resse! ,it$ &%blic interest (or b' e4&ress constit%tional
man!ate a &%blic o((ice is a &%blic tr%st. 2$e com&laint (or
illegal !ismissal (ile! b' 7aviero an! Cata&ang against Cit'
3ngineer Divinagracia is in e((ect a com&laint against t$e
Cit' Government o( Bago Cit' t$eir real em&lo'er o( ,$ic$
&etitioner 7avellana is a co%ncilman. Hence 9%!gment
against Cit' 3ngineer Divinagracia ,o%l! act%all' be a
9%!gment against t$e Cit' Government. B' serving as
co%nsel (or t$e com&laining em&lo'ees an! assisting t$em
to &rosec%te t$eir claims against Cit' 3ngineer Divinagracia
t$e &etitioner violate! Memoran!%m Circ%lar No. 70DC8 ;in
relation to )ection 7UbD/V o( -# G711< &ro$ibiting a
government o((icial (rom engaging in t$e &rivate &ractice o(
$is &ro(ession i( s%c$ &ractice ,o%l! re&resent interests
a!verse to t$e government.
/G7
=etitionerHs contention t$at )ection 85 o( t$e LGC o( 1881
an! DLG Memoran!%m Circ%lar No. 85D81 violate #rticle K***
)ection C o( t$e Constit%tion is com&letel' o(( tangent.
Neit$er t$e stat%te nor t$e circ%lar trenc$es %&on t$e
)%&reme Co%rtHs &o,er an! a%t$orit' to &rescribe r%les on
t$e &ractice o( la,. 2$e LGC an! DLG Memoran!%m Circ%lar
No. 85D81 sim&l' &rescribe r%les o( con!%ct (or &%blic
o((icials to avoi! con(licts o( interest bet,een t$e !isc$arge
o( t$eir &%blic !%ties an! t$e &rivate &ractice o( t$eir
&ro(ession in t$ose instances ,$ere t$e la, allo,s it.
)ection 85 o( t$e LGC !oes not !iscriminate against la,'ers
an! !octors. *t a&&lies to all &rovincial an! m%nici&al
o((icials in t$e &ro(essions or engage! in an' occ%&ation.
)ection 85 e4&licitl' &rovi!es t$at sangg%nian members
"ma' &ractice t$eir &ro(essions engage in an' occ%&ation
or teac$ in sc$ools e4&ect !%ring session $o%rs." *( t$ere are
some &ro$ibitions t$at a&&l' &artic%larl' to la,'ers it is
beca%se o( all t$e &ro(essions t$e &ractice o( la, is more
li+el' t$an ot$ers to relate to or a((ect t$e area o( &%blic
service.

Osea v. Mala#a
Facts: On November /5 1887 &etitioner (ile! a =rotest Case ,it$
t$e Civil )ervice Commission. )$e averre! t$at s$e ,as a&&ointe!
as O((icerDinDC$arge #ssistant )c$ools Division )%&erinten!ent o(
Camarines )%r b' t$en )ecretar' -icar!o 2. Gloria o( t$e
De&artment o( 3!%cation C%lt%re an! )&orts %&on t$e
en!orsement o( t$e =rovincial )c$ool Boar! o( Camarines )%rA t$at
!es&ite t$e recommen!ation o( )ecretar' Gloria =resi!ent Fi!el K.
-amos a&&ointe! res&on!ent to t$e &osition o( )c$ools Division
)%&erinten!ent o( Camarines )%rA t$at res&on!entHs a&&ointment
,as ma!e ,it$o%t &rior cons%ltation ,it$ t$e =rovincial )c$ool
Boar! in violation o( )ection 88 o( t$e LGC o( 1881. Hence
&etitioner &ra'e! t$at res&on!entHs a&&ointment be recalle! an!
set asi!e (or being n%ll an! voi!. On Marc$ 11 1888 t$e Civil
)ervice Commission iss%e! -esol%tion No. 885G88 !ismissing
&etitionerHs &rotestDcom&laint. 2$e Civil )ervice Commission (o%n!
t$at on )e&tember 11 188G =resi!ent -amos a&&ointe!
res&on!ent ,$o ,as t$en O((icerDinDC$arge )c$ools Division
)%&erinten!ent o( *riga Cit' as )c$ools Division )%&erinten!ent
,it$o%t an' s&eci(ic !ivision. 2$%s res&on!ent &er(orme! t$e
(%nctions o( )c$ools Division )%&erinten!ent in *riga Cit'.
)%bse.%entl' on November 1 1887 )ecretar' Gloria !esignate!
res&on!ent as )c$ools Division )%&erinten!ent o( Camarines )%r
an! &etitioner as )c$ools Division )%&erinten!ent o( *riga Cit'. *n
!ismissing &etitionerHs &rotest t$e Civil )ervice Commission $el!
t$at )ection 88 o( t$e LGC o( 1881 contem&lates a sit%ation ,$ere
t$e De&artment o( 3!%cation C%lt%re an! )&orts iss%es t$e
a&&ointments ,$ereas res&on!entHs a&&ointment ,as ma!e b' no
less t$an t$e =resi!ent in t$e e4ercise o( $is a&&ointing &o,er.
Moreover t$e !esignation o( res&on!ent as )c$ools Division
)%&erinten!ent o( Camarines )%r an! o( &etitioner as )c$ools
Division )%&erinten!ent o( *riga Cit' ,ere in t$e nat%re o(
reassignments in ,$ic$ case cons%ltation ,it$ t$e local sc$ool
boar! ,as %nnecessar'. M-: !enie!. C#: !ismisse!.
*ss%es: 1. 6ON )ec 88 o( t$e LGC is a&&licable.
Clearl' t$e a(oreD.%ote! &ortion o( )ection 88 o( t$e LGCo(
1881 a&&lies to a&&ointments ma!e b' t$e D3C). 2$is is
beca%se at t$e time o( t$e enactment o( t$e LGC sc$ools
!ivision s%&erinten!ents ,ere a&&ointe! b' t$e D3C) to
s&eci(ic !ivision or location. *n 1880 t$e Career 34ec%tive
)ervice Boar! iss%e! Memoran!%m Circ%lar No. /1 )eries o(
1880 &lacing t$e &ositions o( sc$ools !ivision
s%&erinten!ent an! assistant sc$ools !ivision
s%&erinten!ent ,it$in t$e career e4ec%tive service.
Conse.%entl' t$e &o,er to a&&oint &ersons to career
e4ec%tive service &ositions ,as trans(erre! (rom t$e D3C)
to t$e =resi!ent. 2$e a&&ointment ma' not be s&eci(ic as to
location. 2$e &rerogative to !esignate t$e a&&ointees to
t$eir &artic%lar stations ,as veste! in t$e D3C) )ecretar'
&%rs%ant to t$e e4igencies o( t$e service as &rovi!e! in
D3C) Or!er No. 7C )eries o( 188G.
*n t$e case at bar t$e a&&ointment iss%e! b' =resi!ent
-amos in (avor o( res&on!ent to t$e )c$ools Division
)%&erinten!ent &osition on )e&tember 1 188G !i! not
s&eci(' $er station. *t ,as )ecretar' Gloria ,$o in a
Memoran!%m !ate! November 1 1887 assigne! an!
!esignate! res&on!ent to t$e Division o( Camarines )%r
an! &etitioner to t$e Division o( *riga Cit'.
/G8
@n!er t$e circ%mstances t$e !esignation o( res&on!ent as
)c$ools Division )%&erinten!ent o( Camarines )%r ,as not a
case o( a&&ointment. Her !esignation &artoo+ o( t$e nat%re
o( a reassignment (rom *riga Cit' ,$ere s$e &revio%sl'
e4ercise! $er (%nctions as O((icerDinDC$argeD)c$ools Division
)%&erinten!ent to Camarines )%r. Clearl' t$ere(ore t$e
re.%irement in )ection 88 o( t$e LGC o( 1881 o( &rior
cons%ltation ,it$ t$e local sc$ool boar! !oes not a&&l'. *t
onl' re(ers to a&&ointments ma!e b' t$e De&artment o(
3!%cation C%lt%re an! )&orts. )%c$ is t$e &lain meaning o(
t$e sai! la,.
2$e "&lain meaning r%le" or verba legis in stat%tor'
constr%ction is t$%s a&&licable in t$is case. 6$ere t$e ,or!s
o( a stat%te are clear &lain an! (ree (rom ambig%it' it m%st
be given its literal meaning an! a&&lie! ,it$o%t attem&te!
inter&retation.
#&&ointment s$o%l! be !isting%is$e! (rom reassignment. #n
a&&ointment ma' be !e(ine! as t$e selection b' t$e
a%t$orit' veste! ,it$ t$e &o,er o( an in!ivi!%al ,$o is to
e4ercise t$e (%nctions o( a given o((ice. 6$en com&lete!
%s%all' ,it$ its con(irmation t$e a&&ointment res%lts in
sec%rit' o( ten%re (or t$e &erson c$osen %nless $e is
re&laceable at &leas%re beca%se o( t$e nat%re o( $is o((ice.
On t$e ot$er $an! a reassignment is merel' a movement o(
an em&lo'ee (rom one organiBational %nit to anot$er in t$e
same !e&artment or agenc' ,$ic$ !oes not involve a
re!%ction in ran+ stat%s or salar' an! !oes not re.%ire t$e
iss%ance o( an a&&ointment. *n t$e same vein a !esignation
connotes merel' t$e im&osition o( a!!itional !%ties on an
inc%mbent o((icial.
/. 6ON =etitioner $as a veste! rig$t to t$e &osition o( )c$ools
Division )%&erinten!ent o( Camarines )%r in vie, o( $er
en!orsement b' t$e =rovincial )c$ool Boar!.
Her .%ali(ication to t$e o((ice $o,ever lac+s one essential
ingre!ient i.e. $er a&&ointment t$ereto. 6$ile s$e ,as
recommen!e! b' )ecretar' Gloria to =resi!ent -amos (or
a&&ointment to t$e &osition o( )c$ools Division
)%&erinten!ent o( Camarines )%r t$e recommen!ation ,as
not acte! %&on b' t$e =resi!ent. =etitionerHs !esignation as
O((icerDinDC$arge #ssistant )c$ools Division
)%&erinten!ent ,as e4&ressl' ma!e s%b9ect to (%rt$er
a!vice (rom t$e De&artment o( 3!%cation C%lt%re an!
)&orts.1G 2$%s $er !esignation ,as tem&orar'. *n (act
t$ere ,as a nee! to recommen! $er to t$e =resi!ent (or
a&&ointment in a &ermanent ca&acit'. *nasm%c$ as s$e
occ%&ie! $er &osition onl' tem&oraril' &etitioner can be
trans(erre! or reassigne! to ot$er &ositions ,it$o%t violating
$er rig$t to sec%rit' o( ten%re. *n!ee! &etitioner $as no
veste! rig$t to t$e &osition o( )c$ools Division
)%&erinten!ent o( Camarines )%r.
Basco v. PAGCOR /supra- see p. 61
/G8
Ganzon v. CA /supra- see p. D1
Cit# o! Cebu v. ,ational 7ater"or:s an (e"erage
Authorit#
Facts: 2$e OsmeRa 6ater,or+s )'stem ,as constr%cte! t$ro%g$ a
sale o( bon!s as a%t$oriBe! b' t$e =$ili&&ine Legislat%re t$ro%g$
#ct /558. B' stat%te t$e Cit' o( Ceb% came into e4istence as a
&olitical bo!' cor&orate on /5 October 181G. 2$e ne,l' create!
cit' absorbe! t$e (ormer m%nici&alit' o( Ceb%. #mong t$e general
&o,ers grante! to an! !%ties im&ose! %&on t$e legislative bo!'
o( t$e Cit' +no,n as t$e M%nici&al Boar! is t$at o( &rovi!ing (or
t$e maintenance o( ,ater,or+s (or t$e &%r&ose o( s%&&l'ing ,ater
to t$e in$abitants o( t$e cit' an! t$e &%ri(ication o( t$e so%rce o(
s%&&l' an! t$e &laces t$ro%g$ ,$ic$ t$e same &asses an! to
reg%late t$e cons%m&tion an! %se o( t$e ,aterA to (i4 an! &rovi!e
(or t$e collection o( rents t$ere(orA an! to reg%late t$e constr%ction
re&air an! %se o( $'!rants &%m&s cisterns an! reservoirs. )ec.
17D4. Common,ealt$ #ct C8<.=%rs%ant to t$e a(oresai! c$arter
&rovision t$e M%nici&al Boar! t$e Cit' o( Ceb% $as been r%nning
an! o&erating t$e OsmeRa 6ater,or+s )'stem. *ts m%nici&al Boar!
&rovi!es (or t$e b%!getar' e4&enses o( t$e )'stem an! governs
t$e !is&osition o( t$e )'stemHs reven%e.On 1G November 1808 t$e
=%blic )ervice Commission grante! &lainti(( Cit' a certi(icate o(
&%blic convenience to o&erate an! maintain t$e OsmeRa
6ater,or+s )'stem s%b9ect to t$e terms an! con!itions im&ose!
t$erein. For t$e &%r&ose o( e4&an!ing t$e service to meet t$e
,ater nee!s o( its increase! &o&%lation t$e Cit' o( Ceb% on 11
December 18C5 (ile! ,it$ t$e De&artment o( #gric%lt%re an!
Nat%ral -eso%rces an a&&lication (or t$e %se o( ,ater emanating
(rom a nat%ral s&ring in a &rivate lan! belonging to t$e late Dr. =io
Kalencia sit%ate! in Hag%biao Consolacion Ceb%. 2$e sai!
a&&lication ,as in !%e time a&&rove! b' t$e !e&artment $ea!. On
17 7%ne 18CC !e(en!ant #%t$orit' ,as create! as a &%blic
cor&oration. ;)ec. 1 -e&%blic #ct No. 1181<. =%rs%ant to its c$arter
!e(en!ant s$all o,n an!?or $ave 9%ris!iction s%&ervision an!
control over all territor' no, embrace! b' t$e Metro&olitan 6ater
District as ,ell as all areas no, serve! b' e4isting governmentD
o,ne! ,ater,or+s an! se,erage an! !rainage s'stems ,it$in t$e
bo%n!aries o( cities m%nici&alities an! m%nici&al !istricts in t$e
=$ili&&ines incl%!ing t$ose serve! b' t$e 6ater,or+s an! 6ells
an! Drills )ections o( t$e B%rea% o( =%blic 6or+sH ;)ec. 1<.
De(en!ant ,as also given t$e &o,er "to ac.%ire &%rc$ase $ol!
trans(er sell lease rent mortgage enc%mber an! ot$er,ise
!is&ose o( real an! &ersonal &ro&ert' incl%!ing rig$ts an!
(ranc$ises ,it$in t$e =$ili&&ines as a%t$oriBe! b' t$e &%r&oses (or
,$ic$ t$e #%t$orit' ,as create! an! reasonabl' an! necessaril'
re.%ire! (or t$e transaction o( t$e la,(%l b%siness o( t$e same
%nless ot$er,ise &rovi!e! in t$is #ct" an! to e4ercise t$e rig$t o(
eminent !omain (or t$e &%r&ose (or ,$ic$ t$e #%t$orit' ,as
create! in t$e manner &rovi!e! (or b' la, (or con!emnation
&rocee!ings b' t$e national &rovincial an! m%nici&al
governmentsA ;)ec. / &aragra&$s U$V an! UiV<.
Lastl' t$e #ct &rovi!es t$at "all e4isting governmentDo,ne!
,ater,or+s an! se,erage s'stems in cities m%nici&alities an!
m%nici&al !istricts incl%!ing s&rings an! ot$er ,ater so%rces as
,ell as t$e ,aterD,or+s an! se,erage bon!s sin+ing (%n!s an! all
in!ebte!ness in general o( t$e sai! Metro&olitan 6ater District an!
governmentDo,ne! ,ater,or+s an! se,erage s'stems are
trans(erre! to t$e National 6ater,or+s an! )e,erage #%t$orit'
an! t$e Boar! is $ereb' a%t$oriBe! an! !irecte! to receive an!
ass%me all s%c$ assets an! liabilities or on be$al( o( t$e sai!
#%t$orit' an! in t%rn to &le!ge s%c$ assets as sec%rit' (or t$e
&a'ment o( ,ater,or+s an! se,erage bon!e! !ebt" an! t$at t$e
net boo+ val%e o( t$e &ro&erties an! assets o( t$e Metro&olitan
6ater District an! o( government o,ne! ,ater,or+s an! se,erage
s'stems in cities m%nici&alities or m%nici&al !istricts an! ot$er
governmentDo,ne! ,ater,or+s an! se,erage s'stems s$all be
receive! b' t$e #%t$orit' in &a'ment (or an e.%al val%e o( t$e
assets o( t$e National 6ater,or+s an! )e,erage #%t$orit'. ;)ec.
8<.
*ss%e: 6ON -# 1181 constit%tional.
Cit' o( Bag%io vs. 2$e National 6ater,or+s an! )e,erage
#%t$orit': *t is clear t$at t$e )tate ma' in t$e interest o(
national ,el(are trans(er to &%blic o,ners$i& an' &rivate
enter&rise %&on &a'ment o( 9%st com&ensation. #t t$e same
time one $as to bear in min! t$at no &erson can be
!e&rive! o( $is &ro&ert' e4ce&t (or &%blic %se an! %&on
&a'ment o( 9%st com&ensation. 2$ere is an attem&t to
observe t$is re.%irement in -e&%blic #ct No. 1181 ,$en in
&rovi!ing (or t$e trans(er o( a&&elleeHs ,ater,or+s s'stem
to a national agenc' it ,as !irecte! t$at t$e trans(er be
ma!e %&on &a'ment o( an e.%ivalent val%e o( t$e &ro&ert'.
/75
Has t$is been im&lemente!T Has a&&ellant act%all'
trans(erre! a&&ellee an' asset o( t$e N#6#)# t$at ma' be
consi!ere! 9%st com&ensation (or t$e &ro&ert' e4&ro&riate!T
2$ere is not$ing in t$e recor! to s$o, t$at s%c$ ,as !one.
Neit$er is t$ere an't$ing to t$is e((ect in O((ice
Memoran!%m No. 7 iss%e! b' t$e N#6#)# in
im&lementation o( t$e &rovision o( -e&%blic #ct No. 1181.
2$e la, s&ea+s o( assets o( t$e N#6#)# b%t t$e' are not
s&eci(ie!. 6$ile t$e #ct em&o,ers t$e N#6#)# to contract
in!ebte!ness an! iss%e bon!s s%b9ect to t$e a&&roval o( t$e
)ecretar' o( Finance ,$en necessar' (or t$e transaction o(
its b%siness ;sec. / &a ;1<sec. C #ct No. 1181< no s%c$
action $as been ta+en to com&l' ,it$ a&&ellantHs
commitment in so (ar as &a'ment o( com&ensation o(
a&&ellee is concerne!. #s to ,$en s%c$ action s$o%l! be
ta+en no one +no,s. #n! %nless t$is as&ect o( t$e la, is
clari(ie! an! a&&ellee is given its !%e com&ensation
a&&ellee cannot be !e&rive! o( its &ro&ert' even i( a&&ellant
!esires to ta+e over its a!ministration in line ,it$ t$e s&irit
o( t$e la,. 6e are t$ere(ore &ers%a!e! to concl%!e t$at t$e
la, inso(ar as it e4&ro&riates t$e ,ater,or+s in .%estion
,it$o%t &rovi!ing (or an e((ective &a'ment o( 9%st
com&ensation violates o%r Constit%tion.
34actl' t$e same sit%ation obtains in t$e &resent case.
)ection 8 o( -e&%blic #ct No. 1181 ;s%&ra.< &rovi!es t$at
"t$e net boo+ val%e o( t$e &ro&erties an! assets o( t$e
Metro&olitan 6ater District an! o( governmentDo,ne!
,ater,or+s an! se,erage s'stems in cities m%nici&alities
o( m%nici&al !istricts an! ot$er governmentDo,ne!
,ater,or+s an! se,erage s'stems s$all be receive! b' t$e
#%t$orit' in &a'ment (or an e.%al val%e o( t$e assets o( t$e
National 6ater,or+s an! )e,erage #%t$orit'". *n ot$er
,or!s all t$e &ro&erties an! assets o( t$e OsmeRa
6ater,or+s )'stem are trans(erre! to t$e !e(en!ant
N#6#)# in e4c$ange (or an e.%al val%e o( t$e latterHs
assets. B%t ,$at t$ese assets consist o( not$ing concrete
&resentl' a&&ears. #ll t$at is &rovi!e! in )ection 8 is t$at
N#6#)# ac.%ires all t$e assets an! liabilities o( all
governmentDo,ne! ,ater,or+s an! se,erage s'stems in
t$e co%ntr'. *t is an e.%al val%e o( t$ese %nli.%i!ate! assets
an! liabilities t$at is s%&&ose! to be given to &lainti((D
a&&ellee as &a'ment o( its )'stem. )%c$ certainl' is not a
com&ensation t$at satis(ies t$e Constit%tional &rovisions.
Ceb%: ,ater,or+s involve! $erein is not a &atrimonial
&ro&ert' o( t$e Cit' o( Ceb% b%t one (or &%blic %se an!
t$ere(ore (alls ,it$in t$e control o( t$e legislat%re. 6e (in!
no merit in $is contention. *t m%st be remembere! t$at t$e
OsmeRa 6ater,or+s )'stem ,as establis$e! o%t o( t$e
d1/C555.55 loan e4ten!e! to t$e m%nici&alit' o( Ceb% b'
t$e @.). Government &a'able ,it$in 15 'ears (rom t$e
release t$ereo( ;)ec. 1 #ct /558< an! ,$ic$ a&&arentl'
,as (%ll' &ai! (or b' sai! m%nici&alit' as certi(ie! to b' t$e
*ns%lar 2reas%rer ;34$. D<. For its o&eration an!
maintenance t$e Cit' o( Ceb% ;OsmeRa 6ater,or+s
)'stem< a&&lie! (or an! obtaine! a certi(icate o( &%blic
convenience (rom t$e =%blic )ervice Commission ;34$. 3<
an! ,as ma!e s%b9ect to t$e rates (i4e! an! reg%lations
im&ose! b' sai! bo!'. 2$e )'stem o,ne! &ro&erties ,$ic$
a&&ellee estimate! at =15555555.55 alt$o%g$ a&&ellant
claims it to be ,ort$ onl' =1555555.55 an! o&erates on a
b%!get a&&rove! b' its Boar! o( Directors ;not b'
Congress< t$e !isb%rsement o( ,$ic$ ,as &lace! %n!er t$e
s%&ervision an! c%sto!' o( t$e Cit' 2reas%rer ;t.s.n. &&. /8D
/8<. 2$e mere (act t$at t$e B%$isan basin ,$ere t$e ,ater is
collecte! stan!s on a government reservation an! t$at t$e
)'stem ,as create! to serve t$e nee!s o( t$e resi!ents o(
sai! Cit' ;%&on &a'ment o( certain rates (rom ,$ic$ t$e
)'stem !erives material gain< to o%r min! !o not trans(orm
t$e &ro&rietar' nat%re o( a&&elleeHs o,ners$i& over t$e
same to governmental or &%blic. 2$e (la, in a&&ellantHs
contention t$at t$e )'stem is a &%blic ,or+s (or &%blic
service is !%e to an a&&arent misa&&re$ension t$at beca%se
t$e )'stem serves t$e &%blic in a manner o( s&ea+ing it is
b%t t$at to+en alone necessaril' (or &%blic service. 2$e
contention overloo+s t$e (act t$at onl' t$ose o( t$e general
&%blic ,$o &a' t$e re.%ire! rental or c$arge a%t$oriBe! an!
collecte! b' t$e )'stem !o ma+e %se o( ,ater. *n ot$er
,or!s t$e )'stem serves all ,$o &a' t$e c$arges. *t is o&en
to t$e &%blic ;in t$e sense it is &%blic service< b%t %&on t$e
&a'ment onl' o( a certain rental ;,$ic$ ma+es it
&ro&rietar'.< #rticle 0/0 o( Ne, Civil Co!e cite! b' a&&ellant
ma+es clear !istinction. *t rea!s: #-2. 0/0. =ro&ert' (or
&%blic %se in t$e &rovince cities m%nici&alities consist o(
/71
t$e &rovincial roa!s cit' streets m%nici&al streets t$e
s.%ares (o%ntains &%blic ,aters &romena!es &%blic ,or+s
(or &%blic service &ai! (or b' sai! &rovinces cities
m%nici&alities.
#ll ot$er &ro&ert' &ossesse! b' an' o( t$em is &atrimonial
an! s$all be governe! b' t$is Co!e ,it$o%t &re9%!ice to t$e
&rovisions o( s&ecial la,s. 2$%s t$e term "&%blic ,or+s (or
&%blic service" m%st be inter&rete! (ollo,ing t$e &rinci&le
o( e9%s!em generis in t$e conce&t o( t$e &rece!ing ,or!s
"&rovincial roa!s cit' streets m%nici&al streets t$e
s.%ares (o%ntains &%blic ,aters an! &romena!es" ,$ic$
are %se! (reel' b' all ,it$o%t !istinction. Hence i( t$e &%blic
,or+s is not s%c$ (ree &%blic service it is not ,it$in t$e
&%rvie, t$e (irst &aragra&$ b%t o( t$e secon! &aragra&$ o(
#rticle 0/0 an! conse.%entl' &atrimonial in c$aracter.
#n! as alrea!' $el! b' t$is Co%rt a m%nici&al ,ater s'stem
!esigne! to s%&&l' ,ater to t$e in$abitants (or &ro(it is a
cor&orate (%nction o( t$e m%nici&alit'
Cases !i((er as to t$e &%blic an! &rivate c$aracter o( ,ater
,or+s in some res&ects b%t t$e ,eig$t o( a%t$orit' in so (ar
as legislative control is concerne! classes t$em as &rivate
a((airs
2$e conse.%ential e((ect o( s%c$ !eclaration is (oreseeable
t$%s: #lt$o%g$ t$e state ma' reg%late t$e service an! rates
o( ,ater &lants o,ne! an! o&erate! b' m%nici&alities s%c$
&ro&ert' is not em&lo'e! (or governmental &%r&oses an! in
t$e o,ners$i& o&eration t$ereo( t$e m%nici&alit' acts in its
&ro&rietar' ca&acit' (ree (rom legislative inter(erence
2$e ,ater s'stem o( a cit' not being a &ro&ert' $el! (or
governmental &%r&oses is not s%b9ect to legislative control
*n t$e o,ners$i& an! control o( a ,ater s'stem &%rc$ase!
b' t$e cit' o%t o( t$e &rocee!s o( t$e loan contracte! (or
t$at &%r&ose t$e cit' acts in its &ro&rietar' c$aracter as
!isting%is$e! (rom its government ca&acit'.
)imilarl' ,e cannot %&$ol! a&&ellantHs t$eor' t$at t$e
trans(er o( o,ners$i& o( t$e OsmeRa 6ater,or+s )'stem to
anot$er government agenc' is a vali! e4ercise o( t$e &olice
&o,er o( t$e )tate beca%se ,$ile t$e &o,er to enact la,s
inten!e! to &romote &%blic or!er sa(et' $ealt$ morals an!
general ,el(are o( societ' is in$erent in ever' sovereign
state s%c$ &o,er is not ,it$o%t limitations notable among
,$ic$ is t$e constit%tional &ro$ibition against t$e ta+ing o(
&rivate &ro&ert' (or &%blic %se ,it$o%t 9%st com&ensation.
;#rt. *** )ec. 1 =$ili&&ine Constit%tion.<.
No e4ercise o( t$e &olice &o,er can !isregar! t$e
constit%tional g%arantees in res&ect to t$e ta+ing o( &rivate
&ro&ert' !%e &rocess an! e.%al &rotection o( t$e la,s an!
it s$o%l! not overri!e t$e !eman!s o( nat%ral 9%stice *( a
stat%te &%r&orting to $ave been enacte! to &rotect t$e
&%blic $ealt$ morals or sa(et' $as no real or s%bstantial
reason to t$ese ob9ects or is a &al&able invasion o( rig$ts
sec%re! b' (%n!amental la, it is t$e !%t' o( co%rts to so
a!9%!ge an! t$ereb' give e((ect to t$e Constit%tion. #ction
in t$e nat%re o( &olice reg%lation is voi! i( against t$e
e4&ress &rovisions o( t$e Constit%tion alt$o%g$ ot$er,ise
,it$in its general &o,er to ma+e &olice reg%lations.
#&&ellant also %rges recognition o( t$e rig$t o( t$e National
Government ;t$ro%g$ t$e National 6ater,or+s P )e,erage
#%t$orit'< to ac.%ire t$e OsmeRa 6ater,or+s )'stem b'
eminent !omain. 2$is ,e (in! to be e.%all' %ntenable (or
one o( t$e essential re.%isites to t$e la,(%l e4ercise o( t$is
rig$t is t$e &a'ment to t$e o,ner o( con!emne! &ro&ert' o(
9%st com&ensation to be ascertaine! accor!ing to la,.
Nee!less to state in t$is res&ect t$at it is &recisel' (or t$is
reason t$at is lac+ o( &rovision regar!ing e((ective
&a'ment o( 9%st com&ensation t$at -e&%blic #ct No. 1181
,as !eclare! violative o( t$e Constit%tion in t$e case o( Cit'
o( Bag%io vs. National 6ater,or+s P )e,erage #%t$orit'.
Province o! Famboanga el ,orte v. Cit# o! Famboanga
Facts: =rior to its incor&oration as a c$artere! cit' t$e M%nici&alit'
o( Zamboanga %se! to be t$e &rovincial ca&ital o( t$e t$en
Zamboanga =rovince. On October 1/ 181G Common,ealt$ #ct 18
,as a&&rove! converting t$e M%nici&alit' o( Zamboanga into
Zamboanga Cit'. )ec. C5 o( t$e #ct also &rovi!e! t$at b%il!ings
an! &ro&erties ,$ic$ t$e &rovince s$all aban!on %&on t$e trans(er
o( t$e ca&ital to anot$er &lace ,ill be ac.%ire! an! &ai! (or b' t$e
Cit' o( Zamboanga at a &rice to be (i4e! b' t$e #%!itor General.
2$e &ro&erties an! b%il!ings re(erre! to consiste! o( C5 lots an!
some b%il!ings constr%cte! t$ereon locate! in t$e Cit' o(
Zamboanga an! covere! in!ivi!%all' b' 2orrens certi(icates o( title
in t$e name o( Zamboanga =rovince. *n 180C t$e ca&ital o(
Zamboanga =rovince ,as trans(erre! to Di&olog. )%bse.%entl' or
/7/
on 7%ne 1G 1808 -e&%blic #ct /8G ,as a&&rove! creating t$e
m%nici&alit' o( Molave an! ma+ing it t$e ca&ital o( Zamboanga
=rovince. On Ma' /G 1808 t$e #&&raisal Committee (orme! b' t$e
#%!itor General &%rs%ant to Common,ealt$ #ct 18 (i4e! t$e val%e
o( t$e &ro&erties an! b%il!ings in .%estion le(t b' Zamboanga
=rovince in Zamboanga Cit' at =1/80/00.55. On 7%ne G 18C/
-e&%blic #ct 711 ,as a&&rove! !ivi!ing t$e &rovince o(
Zamboanga into t,o: Zamboanga !el Norte an! Zamboanga !el
)%r. #s to $o, t$e assets an! obligations o( t$e ol! &rovince ,ere
to be !ivi!e! bet,een t$e t,o ne, ones )ec. G o( t$at la,
&rovi!e! t$at t$e (%n!s assets an! ot$er &ro&erties an! t$e
obligations o( t$e &rovince o( Zamboanga s$all be !ivi!e! e.%itabl'
bet,een t$e =rovince o( Zamboanga !el Norte an! t$e =rovince o(
Zamboanga !el )%r b' t$e =resi!ent o( t$e =$ili&&ines %&on t$e
recommen!ation o( t$e #%!itor General. =%rs%ant t$ereto t$e
#%!itor General on 7an%ar' 11 18CC a&&ortione! t$e assets an!
obligations o( t$e !e(%nct =rovince o( Zamboanga as (ollo,s:
C0.18Y (or Zamboanga !el Norte an! 0C.G1Y (or Zamboanga !el
)%r. Zamboanga !el Norte t$ere(ore became entitle! to C0.18Y o(
=1/80/00.55 t$e total val%e o( t$e lots an! b%il!ings in .%estion
or =750//5.5C &a'able b' Zamboanga Cit'. On Marc$ 17 18C8
t$e 34ec%tive )ecretar' b' or!er o( t$e =resi!ent iss%e! a r%ling
$ol!ing t$at Zamboanga !el Norte $a! a veste! rig$t as o,ner
;s$o%l! be coDo,ner &roDin!iviso< o( t$e &ro&erties mentione! in
)ec. C5 o( Common,ealt$ #ct 18 an! is entitle! to t$e &rice
t$ereo( &a'able b' Zamboanga Cit'. 2$is r%ling revo+e! t$e
&revio%s Cabinet -esol%tion o( 7%l' 11 18C1 conve'ing all t$e sai!
C5 lots an! b%il!ings t$ereon to Zamboanga Cit' (or =1.55
e((ective as o( 180C ,$en t$e &rovincial ca&ital o( t$e t$en
Zamboanga =rovince ,as trans(erre! to Di&olog. 2$e )ecretar' o(
Finance t$en a%t$oriBe! t$e Commissioner o( *nternal -even%e to
!e!%ct an amo%nt e.%al to /CY o( t$e reg%lar internal reven%e
allotment (or t$e Cit' o( Zamboanga (or t$e .%arter en!ing Marc$
11 18G5 t$en (or t$e .%arter en!ing 7%ne 15 18G5 an! again (or
t$e (irst .%arter o( t$e (iscal 'ear 18G5D18G1. 2$e !e!%ctions all
aggregating =C7171.0G ,as cre!ite! to t$e &rovince o(
Zamboanga !el Norte in &artial &a'ment o( t$e =7G0//5.5C !%e it.
Ho,ever on 7%ne 17 18G1 -e&%blic #ct 1518 ,as a&&rove!
amen!ing )ec. C5 o( Common,ealt$ #ct 18 b' &rovi!ing t$at a#ll
b%il!ings &ro&erties an! assets belonging to t$e (ormer &rovince o(
Zamboanga an! locate! ,it$in t$e Cit' o( Zamboanga are $ereb'
trans(erre! (ree o( c$arge in (avor o( t$e sai! Cit' o( Zamboanga.
Conse.%entl' t$e )ecretar' o( Finance on 7%l' 1/ 18G1 or!ere!
(%rt$er &a'ments to Zamboanga !el Norte an! to ret%rn to
Zamboanga Cit' t$e s%m o( =C7171.0G ta+en (rom it o%t o( t$e
internal reven%e allotment o( Zamboanga !el Norte. Zamboanga
Cit' a!mits t$at since t$e enactment o( -e&%blic #ct 1518
=01515.11 o( t$e =C7171.0G $as alrea!' been ret%rne! to it. 2$is
constraine! &lainti((Da&&ellee Zamboanga !el Norte to (ile on Marc$
C 18G/ a com&laint entitle! "Declarator' -elie( ,it$ =reliminar'
Man!ator' *n9%nction" in t$e Co%rt o( First *nstance o( Zamboanga
!el Norte against !e(en!antsDa&&ellants Zamboanga Cit' t$e
)ecretar' o( Finance an! t$e Commissioner o( *nternal -even%e. *t
,as &ra'e! t$at: ;a< -e&%blic #ct 1518 be !eclare!
%nconstit%tional (or !e&riving &lainti(( &rovince o( &ro&ert' ,it$o%t
!%e &rocess an! 9%st com&ensationA ;b< =lainti((Hs rig$ts an!
obligations %n!er sai! la, be !eclare!A ;c< 2$e )ecretar' o( Finance
an! t$e *nternal -even%e Commissioner be en9oine! (rom
reimb%rsing t$e s%m o( =C7171.0G to !e(en!ant Cit'A an! ;!< 2$e
latter be or!ere! to contin%e &a'ing t$e balance o( =750//5.5C in
.%arterl' installments o( /CY o( its internal reven%e allotments. On
7%ne 0 18G/ t$e lo,er co%rt or!ere! t$e iss%ance o( &reliminar'
in9%nction as &ra'e! (or. #(ter !e(en!ants (ile! t$eir res&ective
ans,ers trial ,as $el!. On #%g%st 1/ 18G1 9%!gment ,as
ren!ere! !eclaring -e&%blic #ct No. 1518 %nconstit%tional inso(ar
as it !e&rives &lainti(( Zamboanga !el Norte o( its &rivate
&ro&erties consisting o( C5 &arcels o( lan! an! t$e im&rovements
t$ereon %n!er certi(icates o( title in t$e name o( t$e !e(%nct
&rovince o( ZamboangaA or!ering !e(en!ant Cit' o( Zamboanga to
&a' to t$e &lainti(( t$e s%m o( =750//5.5C &a'ment t$ereo( to be
!e!%cte! (rom its reg%lar .%arterl' internal reven%e allotment
e.%ivalent to /CY t$ereo( ever' .%arter %ntil sai! amo%nt s$all
$ave been (%ll' &ai!A or!ering !e(en!ant )ecretar' o( Finance to
!irect !e(en!ant Commissioner o( *nternal -even%e to !e!%ct /CY
(rom t$e reg%lar .%arterl' internal reven%e allotment (or !e(en!ant
Cit' o( Zamboanga an! to remit t$e same to &lainti(( Zamboanga
!el Norte %ntil sai! s%m o( =750//5.5C s$all $ave been (%ll' &ai!A
or!ering &lainti(( Zamboanga !el Norte to e4ec%te t$ro%g$ its
&ro&er o((icials t$e corres&on!ing &%blic instr%ment !ee!ing to
!e(en!ant Cit' o( Zamboanga t$e C5 &arcels o( lan! an! t$e
im&rovements t$ereon %n!er t$e certi(icates o( title %&on &a'ment
b' t$e latter o( t$e a(oresai! s%m o( =750//5.5C in (%llA !ismissing
t$e co%nterclaim o( !e(en!ant Cit' o( ZamboangaA an! !eclaring
&ermanent t$e &reliminar' man!ator' in9%nction iss%e! on 7%ne 8
18G/ &%rs%ant to t$e or!er o( t$e Co%rt !ate! 7%ne 0 18G/. No
/71
costs are assesse! against t$e !e(en!ants. )%bse.%entl' b%t &rior
to t$e &er(ection o( !e(en!antsH a&&eal &lainti(( &rovince (ile! a
motion to reconsi!er &ra'ing t$at Zamboanga Cit' be or!ere!
instea! to &a' t$e =750//5.5C in l%m& s%m ,it$ GY interest &er
ann%m. Over !e(en!antsH o&&osition t$e lo,er co%rt grante!
&lainti(( &rovinceHs motion.
*ss%e: 6ON -# 1518 is %nconstit%tional.
2$e vali!it' o( t$e la, !e&en!s on t$e nat%re o( t$e C5 lots
an! b%il!ings t$ereon in .%estion. *( t$e &ro&ert' is o,ne!
b' t$e m%nici&alit' ;meaning m%nici&al cor&oration< in its
&%blic an! governmental ca&acit' t$e &ro&ert' is &%blic
an! Congress $as absol%te control over it. B%t i( t$e
&ro&ert' is o,ne! in its &rivate or &ro&rietar' ca&acit' t$en
it is &atrimonial an! Congress $as no absol%te control. 2$e
m%nici&alit' cannot be !e&rive! o( it ,it$o%t !%e &rocess
an! &a'ment o( 9%st com&ensation.
2$e ca&acit' in ,$ic$ t$e &ro&ert' is $el! is $o,ever
!e&en!ent on t$e %se to ,$ic$ it is inten!e! an! !evote!.
#-2. 0/1. 2$e &ro&ert' o( &rovinces cities an!
m%nici&alities is !ivi!e! into &ro&ert' (or &%blic %se an!
&atrimonial &ro&ert'. #-2. 0/0. =ro&ert' (or &%blic %se in
t$e &rovinces cities an! m%nici&alities consists o( t$e
&rovincial roa!s cit' streets m%nici&al streets t$e s.%ares
(o%ntains &%blic ,aters &romena!es an! &%blic ,or+s (or
&%blic service &ai! (or b' sai! &rovinces cities or
m%nici&alities. #ll ot$er &ro&ert' &ossesse! b' an' o( t$em
is &atrimonial an! s$all be governe! b' t$is Co!e ,it$o%t
&re9%!ice to t$e &rovisions o( s&ecial la,s.
#&&l'ing t$e above cite! norm all t$e &ro&erties in
.%estion e4ce&t t$e t,o ;/< lots %se! as Hig$ )c$ool
&la'gro%n!s co%l! be consi!ere! as &atrimonial &ro&erties
o( t$e (ormer Zamboanga &rovince. 3ven t$e ca&ital site
t$e $os&ital an! le&rosari%m sites an! t$e sc$ool sites ,ill
be consi!ere! &atrimonial (or t$e' are not (or &%blic %se.
2$e' ,o%l! (all %n!er t$e &$rase "&%blic ,or+s (or &%blic
service" (or it $as been $el! t$at %n!er t$e e9%s!em generis
r%le s%c$ &%blic ,or+s m%st be (or (ree an! in!iscriminate
%se b' an'one 9%st li+e t$e &rece!ing en%merate!
&ro&erties in t$e (irst &aragra&$ o( #rt 0/0. 7 2$e
&la'gro%n!s $o,ever ,o%l! (it into t$is categor'.
M%nici&alit' o( Catbalogan v. Director o( Lan!s an!
M%nici&alit' o( 2acloban v. Director o( Lan!s: ca&itol site
an! t$e sc$ool sites in m%nici&alities constit%te t$eir
&atrimonial &ro&erties. 2$is res%lt is %n!erstan!able
beca%se %nli+e in t$e classi(ication regar!ing )tate
&ro&erties &ro&erties (or &%blic service in t$e m%nici&alities
are not classi(ie! as &%blic. #ss%ming t$en t$e Civil Co!e
classi(ication to be t$e c$osen norm t$e lo,er co%rt m%st
be a((irme! e4ce&t ,it$ regar! to t$e t,o ;/< lots %se! as
&la'gro%n!s.
Norm obtaining %n!er t$e &rinci&les constit%ting t$e la, o(
M%nici&al Cor&orations all t$ose o( t$e C5 &ro&erties in
.%estion ,$ic$ are !evote! to &%blic service are !eeme!
&%blicA t$e rest remain &atrimonial. @n!er t$is norm to be
consi!ere! &%blic it is eno%g$ t$at t$e &ro&ert' be $el!
an! !evote! (or governmental &%r&oses li+e local
a!ministration &%blic e!%cation &%blic $ealt$ etc.
H*N@N#NG#N K. D*-3C2O- OF L#ND): ,$ere t$e
m%nici&alit' $as occ%&ie! lan!s !istinctl' (or &%blic
&%r&oses s%c$ as (or t$e m%nici&al co%rt $o%se t$e &%blic
sc$ool t$e &%blic mar+et or ot$er necessar' m%nici&al
b%il!ing ,e ,ill in t$e absence o( &roo( to t$e contrar'
&res%me a grant (rom t$e )tates in (avor o( t$e
m%nici&alit'A b%t as in!icate! b' t$e ,or!ing t$at r%le ma'
be invo+e! onl' as to &ro&ert' ,$ic$ is %se! !istinctl' (or
&%blic &%r&oses...."
K*@D# D3 2#N2OCO K. M@N*C*=#L CO@NC*L OF *LO*LO:
m%nici&al &ro&erties necessar' (or governmental &%r&oses
are &%blic in nat%re. 2$%s t$e a%to tr%c+s %se! b' t$e
m%nici&alit' (or street s&rin+ling t$e &olice &atrol
a%tomobile &olice stations an! concrete str%ct%res ,it$ t$e
corres&on!ing lots %se! as mar+ets ,ere !eclare! e4em&t
(rom e4ec%tion an! attac$ment since t$e' ,ere not
&atrimonial &ro&erties.
M@N*C*=#L*2: OF B#2#NG#) K). C#N2O): a m%nici&al lot
,$ic$ $a! al,a's been !evote! to sc$ool &%r&oses is one
!e!icate! to &%blic %se an! is not &atrimonial &ro&ert' o( a
m%nici&alit'.
Follo,ing t$is classi(ication -e&%blic #ct 1518 is vali!
inso(ar as it a((ects t$e lots %se! as ca&itol site sc$ool sites
an! its gro%n!s $os&ital an! le&rosari%m sites an! t$e $ig$
sc$ool &la'gro%n! sites S a total o( /0 lots S since t$ese
,ere $el! b' t$e (ormer Zamboanga &rovince in its
/70
governmental ca&acit' an! t$ere(ore are s%b9ect to t$e
absol%te control o( Congress.
6e notice! t$at t$e eig$t B%rleig$ lots above !escribe! are
a!9oining eac$ ot$er an! in t%rn are bet,een t$e t,o lots
,$erein t$e B%rleig$ sc$ools are b%ilt as &er recor!s
a&&earing $erein an! in t$e B%rea% o( Lan!s. Hence t$ere
is s%((icient basis (or $ol!ing t$at sai! eig$t lots constit%te
t$e a&&%rtenant gro%n!s o( t$e B%rleig$ sc$ools an!
&arta+e o( t$e nat%re o( t$e same.
-egar!ing t$e several b%il!ings e4isting on t$e lots aboveD
mentione! t$e recor!s !o not !isclose ,$et$er t$e' ,ere
constr%cte! at t$e e4&ense o( t$e (ormer =rovince o(
Zamboanga. Consi!ering $o,ever t$e (act t$at sai!
b%il!ings m%st $ave been erecte! even be(ore 181G ,$en
Common,ealt$ #ct 18 ,as enacte! an! t$e (%rt$er (act t$at
&rovinces t$en $a! no &o,er to a%t$oriBe constr%ction o(
b%il!ings s%c$ as t$ose in t$e case at bar at t$eir o,n
e4&ense 10 it can be ass%me! t$at sai! b%il!ings ,ere
erecte! b' t$e National Government %sing national (%n!s.
Hence Congress co%l! ver' ,ell !is&ose o( sai! b%il!ings in
t$e same manner t$at it !i! ,it$ t$e lots in .%estion.
B%t even ass%ming t$at &rovincial (%n!s ,ere %se! still t$e
b%il!ings constit%te mere accessories to t$e lan!s ,$ic$
are &%blic in nat%re an! so t$e' (ollo, t$e nat%re o( sai!
lan!s i.e. &%blic. Moreover sai! b%il!ings t$o%g$ locate!
in t$e cit' ,ill not be (or t$e e4cl%sive %se an! bene(it o(
cit' resi!ents (or t$e' co%l! be availe! o( also b' t$e
&rovincial resi!ents. 2$e &rovince t$en S an! its
s%ccessorsDinDinterest S are not reall' !e&rive! o( t$e
bene(its t$ereo(.
B%t -e&%blic #ct 1518 cannot be a&&lie! to !e&rive
Zamboanga !el Norte o( its s$are in t$e val%e o( t$e rest o(
t$e /G remaining lots ,$ic$ are &atrimonial &ro&erties since
t$e' are not being %tiliBe! (or !istinctl' governmental
&%r&oses.
Moreover t$e (act t$at t$ese /G lots are registere!
strengt$ens t$e &ro&osition t$at t$e' are tr%l' &rivate in
nat%re. On t$e ot$er $an! t$at t$e /0 lots %se! (or
governmental &%r&oses are also registere! is o( no
signi(icance since registration cannot convert &%blic
&ro&ert' to &rivate.
6e are more incline! to %&$ol! t$is latter vie,. 2$e
controvers' $ere is more along t$e !omains o( t$e La, o(
M%nici&al Cor&orations S )tate vs. =rovince S t$an along
t$at o( Civil La,. Moreover t$is Co%rt is not incline! to $ol!
t$at m%nici&al &ro&ert' $el! an! !evote! to &%blic service is
in t$e same categor' as or!inar' &rivate &ro&ert'. 2$e
conse.%ences are !ire. #s or!inar' &rivate &ro&erties t$e'
can be levie! %&on an! attac$e!. 2$e' can even be
ac.%ire! t$r% a!verse &ossession S all t$ese to t$e
!etriment o( t$e local comm%nit'. Lastl' t$e classi(ication
o( &ro&erties ot$er t$an t$ose (or &%blic %se in t$e
m%nici&alities as &atrimonial %n!er #rt. 0/0 o( t$e Civil Co!e
S is "... ,it$o%t &re9%!ice to t$e &rovisions o( s&ecial la,s."
For &%r&ose o( t$is article t$e &rinci&les obtaining %n!er
t$e La, o( M%nici&al Cor&orations can be consi!ere! as
"s&ecial la,s". Hence t$e classi(ication o( m%nici&al
&ro&ert' !evote! (or !istinctl' governmental &%r&oses as
&%blic s$o%l! &revail over t$e Civil Co!e classi(ication in t$is
&artic%lar case.
Magta3as v. Pr#ce Properties Corp G PAGCOR
Facts: =#GCO- lease! a &ortion o( a b%il!ing belonging to =r'ce
=ro&erties renovate! an! e.%i&&e! t$e same an! &re&are! to
ina%g%rate its casino t$ere !%ring t$e C$ristmas season. 2$e
)angg%niang =anl%ngso! o( Caga'an !e Oro Cit' enacte!
Or!inance No. 11C1 ,$ic$ &ro$ibits t$e iss%ance o( b%siness
&ermits an! cancels e4isting b%siness &ermits to an' establis$ment
(or t$e %sing an! allo,ing to be %se! its &remises or &ortions
t$ereo( (or t$e o&eration o( casinos. =r'ce assaile! t$e or!inances
be(ore t$e Co%rt o( #&&eals ,$ere it ,as 9oine! b' =#GCO- as
intervenor an! s%&&lemental &etitioner. C# !eclare! t$e or!inances
invali! an! iss%e! t$e ,rit &ra'e! (or to &ro$ibit t$eir en(orcement.
M- !enie!.
*ss%e: 6ON Or!inance 11C1 is %nconstit%tional.
Basco v. =$ili&&ine #m%sements an! Gaming Cor&oration:
s%staine! t$e constit%tionalit' o( t$e !ecree an! even cite!
t$e bene(its o( t$e entit' to t$e national econom' as t$e
t$ir! $ig$est reven%eDearner in t$e government ne4t onl'
to t$e B*- an! t$e B%rea% o( C%stoms.
/7C
Caga'an !e Oro Cit' li+e ot$er local &olitical s%b!ivisions is
em&o,ere! to enact or!inances (or t$e &%r&oses in!icate!
in t$e LGC. *t is e4&ressl' veste! ,it$ t$e &olice &o,er
%n!er ,$at is +no,n as t$e General 6el(are Cla%se. *n
a!!ition )ection 0C8 o( t$e sai! Co!e s&eci(icall' !eclares
t$at t$e )angg%niang =anl%ngso! as t$e legislative bo!' o(
t$e cit' s$all enact or!inances a&&rove resol%tions an!
a&&ro&riate (%n!s (or t$e general ,el(are o( t$e cit' an! its
in$abitants. 2$is section also a%t$oriBes t$e LG@s to
reg%late &ro&erties an! b%sinesses ,it$in t$eir territorial
limits in t$e interest o( t$e general ,el(are.
=: t$e )angg%niang =anl%ngso! ma' &ro$ibit t$e o&eration
o( casinos beca%se t$e' involve games o( c$ance ,$ic$ are
!etrimental to t$e &eo&le. Gambling is not allo,e! b'
general la, an! even b' t$e Constit%tion itsel(. 2$e
legislative &o,er con(erre! %&on local government %nits
ma' be e4ercise! over all +in!s o( gambling an! not onl'
over "illegal gambling" as t$e res&on!ents erroneo%sl'
arg%e. 3ven i( t$e o&eration o( casinos ma' $ave been
&ermitte! %n!er =.D. 18G8 t$e government o( Caga'an !e
Oro Cit' $as t$e a%t$orit' to &ro$ibit t$em ,it$in its
territor' &%rs%ant to t$e a%t$orit' entr%ste! to it b' t$e
LGC. )%c$ inter&retation is consonant ,it$ t$e &olic' o( local
a%tonom' as man!ate! in #rticle ** )ection /C an! #rticle J
o( t$e Constit%tion as ,ell as vario%s ot$er &rovisions
t$erein see+ing to strengt$en t$e c$aracter o( t$e nation. *n
giving t$e LG@s t$e &o,er to &revent or s%&&ress gambling
an! ot$er social &roblems t$e LGC $as recogniBe! t$e
com&etence o( s%c$ comm%nities to !etermine an! a!o&t
t$e meas%res best e4&ecte! to &romote t$e general ,el(are
o( t$eir in$abitants in line ,it$ t$e &olicies o( t$e )tate.
Kali! Or!inance: 1< *t m%st not contravene t$e constit%tion
or an' stat%te. /< *t m%st not be %n(air or o&&ressive. 1< *t
m%st not be &artial or !iscriminator'. 0< *t m%st not &ro$ibit
b%t ma' reg%late tra!e. C< *t m%st be general an! consistent
,it$ &%blic &olic'. G< *t m%st not be %nreasonable.
@n!er )ec. 0C8 o( t$e LGC LG@s are a%t$oriBe! to &revent
or s%&&ress among ot$ers "gambling an! ot$er &ro$ibite!
games o( c$ance." Obvio%sl' t$is &rovision e4cl%!es games
o( c$ance ,$ic$ are not &ro$ibite! b%t are in (act &ermitte!
b' la,. 2$e &etitioners are less t$an acc%rate in claiming
t$at t$e Co!e co%l! $ave e4cl%!e! s%c$ games o( c$ance
b%t !i! not. *n (act it !oes. 2$e lang%age o( t$e section is
clear an! %nmista+able. @n!er t$e r%le o( noscit%r a sociis a
,or! or &$rase s$o%l! be inter&rete! in relation to or given
t$e same meaning o( ,or!s ,it$ ,$ic$ it is associate!.
#ccor!ingl' ,e concl%!e t$at since t$e ,or! "gambling" is
associate! ,it$ "an! ot$er &ro$ibite! games o( c$ance" t$e
,or! s$o%l! be rea! as re(erring to onl' illegal gambling
,$ic$ li+e t$e ot$er &ro$ibite! games o( c$ance m%st be
&revente! or s%&&resse!.
2$e a&&arent (la, in t$e or!inances in .%estion is t$at t$e'
contravene =.D. 18G8 an! t$e &%blic &olic' embo!ie!
t$erein inso(ar as t$e' &revent =#GCO- (rom e4ercising t$e
&o,er con(erre! on it to o&erate a casino in Caga'an !e Oro
Cit'. 2$e &etitioners $ave an ingenio%s ans,er to t$is
misgiving. 2$e' !en' t$at it is t$e or!inances t$at $ave
c$ange! =.D. 18G8 (or an or!inance a!mitte!l' cannot
&revail against a stat%te. 2$eir t$eor' is t$at t$e c$ange $as
been ma!e b' t$e LGC itsel( ,$ic$ ,as also enacte! b' t$e
national la,ma+ing a%t$orit'. *n t$eir vie, t$e !ecree $as
been not reall' re&eale! b' t$e Co!e b%t merel' "mo!i(ie!
&ro tanto" in t$e sense t$at =#GCO- cannot no, o&erate a
casino over t$e ob9ection o( t$e local government %nit
concerne!. 2$is mo!i(ication o( =.D. 18G8 b' t$e LGC is
&ermissible beca%se one la, can c$ange or re&eal anot$er
la,.
*t seems to %s t$at t$e &etitioners are &la'ing ,it$ ,or!s.
6$ile insisting t$at t$e !ecree $as onl' been "mo!i(ie! &ro
tanto" t$e' are act%all' arg%ing t$at it is alrea!' !ea!
re&eale! an! %seless (or all intents an! &%r&oses beca%se
t$e Co!e $as s$orn =#GCO- o( all &o,er to centraliBe an!
reg%late casinos. )trictl' s&ea+ing its o&erations ma' no,
be not onl' &ro$ibite! b' t$e local government %nitA in (act
t$e &ro$ibition is not onl' !iscretionar' b%t man!ate! b'
)ection 0C8 o( t$e Co!e i( t$e ,or! "s$all" as %se! t$erein is
to be given its acce&te! meaning. Local government %nits
$ave no, no c$oice b%t to &revent an! s%&&ress gambling
,$ic$ in t$e &etitionersH vie, incl%!es bot$ legal an! illegal
gambling. @n!er t$is constr%ction =#GCO- ,ill $ave no
more games o( c$ance to reg%late or centraliBe as t$e'
m%st all be &ro$ibite! b' t$e local government %nits
&%rs%ant to t$e man!ator' !%t' im&ose! %&on t$em b' t$e
Co!e. *n t$is sit%ation =#GCO- cannot contin%e to e4ist
/7G
e4ce&t onl' as a toot$less tiger or a ,$ite ele&$ant an! ,ill
no longer be able to e4ercise its &o,ers as a &rime so%rce o(
government reven%e t$ro%g$ t$e o&eration o( casinos.
*t is note,ort$' t$at t$e &etitioners $ave cite! onl' =ar. ;(<
o( t$e re&ealing cla%se convenientl' !iscar!ing t$e rest o(
t$e &rovision ,$ic$ &ainsta+ingl' mentions t$e s&eci(ic la,s
or t$e &arts t$ereo( ,$ic$ are re&eale! ;or mo!i(ie!< b' t$e
Co!e. )igni(icantl' =.D. 18G8 is not one o( t$em. # rea!ing
o( t$e entire re&ealing cla%se ,$ic$ is re&ro!%ce! belo,
,ill !isclose t$e omission: )ec. C10. -e&ealing Cla%se. S ;a<
Batas =ambansa Blg. 117 ot$er,ise +no,n as t$e "LGC"
34ec%tive Or!er No. 11/ ;1887< an! 34ec%tive Or!er No.
118 ;1888< are $ereb' re&eale!. ;b< =resi!ential Decree
Nos. G80 1181 1C58 an! s%c$ ot$er !ecrees or!ers
instr%ctions memoran!a an! iss%ances relate! to or
concerning t$e baranga' are $ereb' re&eale!. ;c< 2$e
&rovisions o( )ections / 1 an! 0 o( -e&%blic #ct No. 1818
regar!ing $os&ital (%n!A )ection 1 a ;1< an! b ;/< o(
-e&%blic #ct. No. C007 regar!ing t$e )&ecial 3!%cation
F%n!A =resi!ential Decree No. 100 as amen!e! b'
=resi!ential Decree Nos. CC8 an! 1701A =resi!ential Decree
No. /11 as amen!e!A =resi!ential Decree No. 01G as
amen!e! b' =resi!ential Decree No. CC8A an! =resi!ential
Decree Nos. 181 01G 0G0 077 C/G G1/ 7C/ an! 111G
are $ereb' re&eale! an! ren!ere! o( no (orce an! e((ect. ;!<
=resi!ential Decree No. 1C80 is $ereb' re&eale! inso(ar as it
governs locall'D(%n!e! &ro9ects. ;e< 2$e (ollo,ing &rovisions
are $ereb' re&eale! or amen!e! inso(ar as t$e' are
inconsistent ,it$ t$e &rovisions o( t$is Co!e: )ections / 1G
an! /8 o( =resi!ential Decree No. 750A )ections 1/ o(
=resi!ential Decree No. 87 as amen!e!A )ections C/ C1
GG G7 G8 G8 75 71 7/ 71 an! 70 o( =resi!ential Decree
No. 0G1 as amen!e!A an! )ection 1G o( =resi!ential Decree
No. 87/ as amen!e! an! ;(< #ll general an! s&ecial la,s
acts cit' c$arters !ecrees e4ec%tive or!ers &roclamations
an! a!ministrative reg%lations or &art or &arts t$ereo(
,$ic$ are inconsistent ,it$ an' o( t$e &rovisions o( t$is
Co!e are $ereb' re&eale! or mo!i(ie! accor!ingl'.
F%rt$ermore it is a (amiliar r%le t$at im&lie! re&eals are not
lig$tl' &res%me! in t$e absence o( a clear an! %nmista+able
s$o,ing o( s%c$ intention. *n Lic$a%co P Co. v. #&ostol t$is
Co%rt e4&laine!: 2$e cases relating to t$e s%b9ect o( re&eal
b' im&lication all &rocee! on t$e ass%m&tion t$at i( t$e act
o( later !ate clearl' reveals an intention on t$e &art o( t$e
la,ma+ing &o,er to abrogate t$e &rior la, t$is intention
m%st be given e((ectA b%t t$ere m%st al,a's be a s%((icient
revelation o( t$is intention an! it $as become an %nben!ing
r%le o( stat%tor' constr%ction t$at t$e intention to re&eal a
(ormer la, ,ill not be im&%te! to t$e Legislat%re ,$en it
a&&ears t$at t$e t,o stat%tes or &rovisions ,it$ re(erence
to ,$ic$ t$e .%estion arises bear to eac$ ot$er t$e relation
o( general to s&ecial.
2$ere is no s%((icient in!ication o( an im&lie! re&eal o( =.D.
18G8. On t$e contrar' as t$e &rivate res&on!ent &oints o%t
=#GCO- is mentione! as t$e so%rce o( (%n!ing in t,o later
enactments o( Congress to ,it -.#. 7158 creating a Boar!
o( Claims %n!er t$e De&artment o( 7%stice (or t$e bene(it o(
victims o( %n9%st &%nis$ment or !etention or o( violent
crimes an! -.#. 7G08 &rovi!ing (or meas%res (or t$e
sol%tion o( t$e &o,er crisis. =#GCO- reven%es are ta&&e!
b' t$ese t,o stat%tes. 2$is ,o%l! s$o, t$at t$e =#GCO-
c$arter $as not been re&eale! b' t$e LGC b%t $as in (act
been im&rove! as it ,ere to ma+e t$e entit' more
res&onsive to t$e (iscal &roblems o( t$e government.
*t is a canon o( legal $ermene%tics t$at instea! o( &itting
one stat%te against anot$er in an inevitabl' !estr%ctive
con(rontation co%rts m%st e4ert ever' e((ort to reconcile
t$em remembering t$at bot$ la,s !eserve a becoming
res&ect as t$e $an!i,or+ o( a coor!inate branc$ o( t$e
government. On t$e ass%m&tion o( a con(lict bet,een =.D.
18G8 an! t$e Co!e t$e &ro&er action is not to %&$ol! one
an! ann%l t$e ot$er b%t to give e((ect to bot$ b'
$armoniBing t$em i( &ossible. 2$is is &ossible in t$e case
be(ore %s. 2$e &ro&er resol%tion o( t$e &roblem at $an! is to
$ol! t$at %n!er t$e LGC local government %nits ma' ;an!
in!ee! m%st< &revent an! s%&&ress all +in!s o( gambling
,it$in t$eir territories e4ce&t onl' t$ose allo,e! b' stat%tes
li+e =.D. 18G8. 2$e e4ce&tion reserve! in s%c$ la,s m%st be
rea! into t$e Co!e to ma+e bot$ t$e Co!e an! s%c$ la,s
e.%all' e((ective an! m%t%all' com&lementar'.
2$is a&&roac$ ,o%l! also a((irm t$at t$ere are in!ee! t,o
+in!s o( gambling to ,it t$e illegal an! t$ose a%t$oriBe! b'
la,. LegaliBe! gambling is not a mo!ern conce&tA it is
&robabl' as ol! as illegal gambling i( not in!ee! more so.
/77
2$e &etitionersH s%ggestion t$at t$e Co!e a%t$oriBes t$em
to &ro$ibit all +in!s o( gambling ,o%l! erase t$e !istinction
bet,een t$ese t,o (orms o( gambling ,it$o%t a clear
in!ication t$at t$is is t$e ,ill o( t$e legislat%re. =la%sibl'
(ollo,ing t$is t$eor' t$e Cit' o( Manila co%l! b' mere
or!inance &ro$ibit t$e =$ili&&ine C$arit' ),ee&sta+es
O((ice (rom con!%cting a lotter' as a%t$oriBe! b' -.#. 11G8
an! B.=. 0/ or sto& t$e races at t$e )an LaBaro Hi&&o!rome
as a%t$oriBe! b' -.#. 158 an! -.#. 881.
*n lig$t o( all t$e above consi!erations ,e see no ,a' o(
arriving at t$e concl%sion %rge! on %s b' t$e &etitioners t$at
t$e or!inances in .%estion are vali!. On t$e contrar' ,e
(in! t$at t$e or!inances violate =.D. 18G8 ,$ic$ $as t$e
c$aracter an! (orce o( a stat%te as ,ell as t$e &%blic &olic'
e4&resse! in t$e !ecree allo,ing t$e &la'ing o( certain
games o( c$ance !es&ite t$e &ro$ibition o( gambling in
general.
2$e rationale o( t$e re.%irement t$at t$e or!inances s$o%l!
not contravene a stat%te is obvio%s. M%nici&al governments
are onl' agents o( t$e national government. Local co%ncils
e4ercise onl' !elegate! legislative &o,ers con(erre! on
t$em b' Congress as t$e national la,ma+ing bo!'. 2$e
!elegate cannot be s%&erior to t$e &rinci&al or e4ercise
&o,ers $ig$er t$an t$ose o( t$e latter. *t is a $eres' to
s%ggest t$at t$e local government %nits can %n!o t$e acts
o( Congress (rom ,$ic$ t$e' $ave !erive! t$eir &o,er in
t$e (irst &lace an! negate b' mere or!inance t$e man!ate
o( t$e stat%te.
M%nici&al cor&orations o,e t$eir origin to an! !erive t$eir
&o,ers an! rig$ts ,$oll' (rom t$e legislat%re. *t breat$es
into t$em t$e breat$ o( li(e ,it$o%t ,$ic$ t$e' cannot e4ist.
#s it creates so it ma' !estro'. #s it ma' !estro' it ma'
abri!ge an! control. @nless t$ere is some constit%tional
limitation on t$e rig$t t$e legislat%re mig$t b' a single act
an! i( ,e can s%&&ose it ca&able o( so great a (oll' an! so
great a ,rong s,ee& (rom e4istence all o( t$e m%nici&al
cor&orations in t$e )tate an! t$e cor&oration co%l! not
&revent it. 6e +no, o( no limitation on t$e rig$t so (ar as to
t$e cor&oration t$emselves are concerne!. 2$e' are so to
&$rase it t$e mere tenants at ,ill o( t$e legislat%re.
2$is basic relations$i& bet,een t$e national legislat%re an!
t$e local government %nits $as not been en(eeble! b' t$e
ne, &rovisions in t$e Constit%tion strengt$ening t$e &olic'
o( local a%tonom'. 6it$o%t meaning to !etract (rom t$at
&olic' ,e $ere con(irm t$at Congress retains control o( t$e
local government %nits alt$o%g$ in signi(icantl' re!%ce!
!egree no, t$an %n!er o%r &revio%s Constit%tions. 2$e
&o,er to create still incl%!es t$e &o,er to !estro'. 2$e
&o,er to grant still incl%!es t$e &o,er to ,it$$ol! or recall.
2r%e t$ere are certain notable innovations in t$e
Constit%tion li+e t$e !irect con(erment on t$e local
government %nits o( t$e &o,er to ta4 1/ ,$ic$ cannot no,
be ,it$!ra,n b' mere stat%te. B' an! large $o,ever t$e
national legislat%re is still t$e &rinci&al o( t$e local
government %nits ,$ic$ cannot !e(' its ,ill or mo!i(' or
violate it.
Co%rt $ol!s t$at t$e &o,er o( =#GCO- to centraliBe an!
reg%late all games o( c$ance incl%!ing casinos on lan! an!
sea ,it$in t$e territorial 9%ris!iction o( t$e =$ili&&ines
remains %nim&aire!. =.D. 18G8 $as not been mo!i(ie! b'
t$e LGC ,$ic$ em&o,ers t$e local government %nits to
&revent or s%&&ress onl' t$ose (orms o( gambling &ro$ibite!
b' la,. Casino gambling is a%t$oriBe! b' =.D. 18G8. 2$is
!ecree $as t$e stat%s o( a stat%te t$at cannot be amen!e!
or n%lli(ie! b' a mere or!inance. Hence it ,as not
com&etent (or t$e )angg%niang =anl%ngso! o( Caga'an !e
Oro Cit' to enact Or!inance No. 11C1 &ro$ibiting t$e %se o(
b%il!ings (or t$e o&eration o( a casino an! Or!inance No.
117CD81 &ro$ibiting t$e o&eration o( casinos.
(olicitor General v. Metro Manila Authorit#
Facts: Mala&ira com&laine! to t$e Co%rt t$at ,$en $e ,as sto&&e!
(or an allege! tra((ic violation $is !riverHs license ,as con(iscate!
in W%eBon Cit'. 2$e CaloocanDManila Drivers an! O&erators
#ssociation t$en sent a letter to t$e Co%rt as+ing ,$o s$o%l!
en(orce t$e !ecision in t$e aboveDmentione! case ,$et$er t$e'
co%l! see+ !amages (or con(iscation o( t$eir !riverHs licenses an!
,$ere t$e' s$o%l! (ile t$eir com&laints. Ot$er letters ,ere receive!
b' t$e Co%rt com&laining against t$e con(iscation o( !riverHs
licenses. )till anot$er com&laint ,as receive! b' t$e Co%rt (or
removal o( a (ront license &late an! !river>s license. 2$e tra((ic
en(orcers invo+e! Or!inance No. 7 )eries o( 1888 o(
Man!al%'ong a%t$oriBing t$e con(iscation o( !riverHs licenses an!
t$e removal o( license &lates o( motor ve$icles (or tra((ic violations
/78
an! a memoran!%m !ate! Febr%ar' /7 1881 (rom t$e District
Comman!er o( t$e 6estern 2ra((ic District o( t$e =$ili&&ine
National =olice a%t$oriBing s%c$ sanction %n!er certain con!itions.
Director General NaBareno o( t$e =$ili&&ine National =olice ass%re!
t$e Co%rt in $is o,n Comment t$at $is o((ice $a! never a%t$oriBe!
t$e removal o( t$e license &lates o( illegall' &ar+e! ve$icles an!
t$at $e $a! in (act !irecte! (%ll com&liance ,it$ t$e aboveD
mentione! !ecision in a memoran!%m co&' o( ,$ic$ $e attac$e!
entitle! -emoval o( Motor Ke$icle License =lates an! !ate!
Febr%ar' /8 1881. 2anoDan on t$e ot$er $an! arg%e! t$at t$e
Gonong !ecision &ro$ibite! onl' t$e removal o( license &lates an!
not t$e con(iscation o( !riverHs licenses. On Ma' /0 1885 t$e
Metro&olitan Manila #%t$orit' iss%e! Or!inance No. 11 )eries o(
1881 a%t$oriBing itsel( "to !etac$ t$e license &late?to, an!
im&o%n! atten!e!? %natten!e!? aban!one! motor ve$icles illegall'
&ar+e! or obstr%cting t$e (lo, o( tra((ic in Metro Manila."
On 7%l' / 1881 t$e Co%rt iss%e! a resol%tion on Or! 11: sec /
,$ic$ allo,s t$e
Metro&olitan Manila #%t$orit' t$r% t$e 2ra((ic O&eration Center is
a%t$oriBe! to !etac$ t$e license &late?to, an! im&o%n!
atten!e!?%natten!e!?aban!one! motor ve$icles illegall' &ar+e! or
obstr%cting t$e (lo, o( tra((ic in Metro Manila a&&ears to be in
con(lict ,it$ t$e !ecision o( t$e Co%rt in t$e case at bar ,$ere it
,as $el! t$at t$e license &lates o( motor ve$icles ma' not be
!etac$e! e4ce&t onl' %n!er t$e con!itions &rescribe! in LO* 01.
#!!itionall' t$e Co%rt $as receive! several com&laints against t$e
con(iscation b' &olice a%t$orities o( !riverHs licenses (or allege!
tra((ic violations ,$ic$ sanction is accor!ing to t$e sai! !ecision
not among t$ose t$at ma' be im&ose! %n!er =D 1G5C. Comments
re.%ire!.
MM#: !e(en!e! t$e sai! or!inance on t$e gro%n! t$at it ,as
a!o&te! &%rs%ant to t$e &o,ers con(erre! %&on it b' 3O 18/. *t
&artic%larl' cite! )ection / t$ereo( vesting in t$e Co%ncil ;its
governing bo!'< t$e res&onsibilit' among ot$ers o(:
1. Form%lation o( &olicies on t$e !eliver' o( basic services re.%iring
coor!ination or consoli!ation (or t$e #%t$orit'A an! /. =rom%lgation
o( resol%tions an! ot$er iss%ances o( metro&olitan ,i!e a&&lication
a&&roval o( a co!e o( basic services re.%iring coor!ination an!
e4ercise o( its r%leDma+ing &o,ers. 2$e #%t$orit' arg%e! t$at t$ere
,as no con(lict bet,een t$e !ecision an! t$e or!inance beca%se
t$e latter ,as meant to s%&&lement an! not s%&&lant t$e latter. *t
stresse! t$at t$e !ecision itsel( sai! t$at t$e con(iscation o( license
&lates ,as invali! in t$e absence o( a vali! la, or or!inance ,$ic$
,as ,$' Or!inance No. 11 ,as enacte!. 2$e #%t$orit' also &ointe!
o%t t$at t$e or!inance co%l! not be attac+e! collaterall' b%t onl' in
a !irect action c$allenging its vali!it'.
)olGen: t$e or!inance ,as n%ll an! voi! beca%se it re&resente! an
invali! e4ercise o( a !elegate! legislative &o,er. 2$e (la, in t$e
meas%re ,as t$at it violate! e4isting la, s&eci(icall' =D 1G5C
,$ic$ !oes not &ermit an! so im&lie!l' &ro$ibits t$e removal o(
license &lates an! t$e con(iscation o( !riverHs licenses (or tra((ic
violations in Metro&olitan Manila. He ma!e no mention $o,ever o(
t$e allege! im&ro&riet' o( e4amining t$e sai! or!inance in t$e
absence o( a (ormal c$allenge to its vali!it'.
On October /0 1881 t$e O((ice o( t$e )olicitor General s%bmitte!
a motion (or t$e earl' resol%tion o( t$e .%estione! sanctions to
remove once an! (or all t$e %ncertaint' o( t$eir vali!it'. # similar
motion ,as (ile! b' t$e Metro&olitan Manila #%t$orit' ,$ic$
reiterate! its contention t$at t$e inci!ents in .%estion s$o%l! be
!ismisse! beca%se t$ere ,as no act%al case or controvers' be(ore
t$e Co%rt.
2$e Metro&olitan Manila #%t$orit' is correct in invo+ing t$e
!octrine t$at t$e vali!it' o( a la, or act can be c$allenge! onl' in a
!irect action an! not collaterall'. 2$at is in!ee! t$e settle!
&rinci&le. Ho,ever t$at r%le is not in(le4ible an! ma' be rela4e! b'
t$e Co%rt %n!er e4ce&tional circ%mstances s%c$ as t$ose in t$e
&resent controvers'. 2$e )olicitor General notes t$at t$e &ractices
com&laine! o( $ave create! a great !eal o( con(%sion among
motorists abo%t t$e state o( t$e la, on t$e .%estione! sanctions.
More im&ortantl' $e maintains t$at t$ese sanctions are illegal
being violative o( la, an! t$e Gonong !ecision an! s$o%l!
t$ere(ore be sto&&e!. 6e also note t$e !ist%rbing re&ort t$at one
&oliceman ,$o con(iscate! a !riverHs license !ismisse! t$e Gonong
!ecision as ",rong" an! sai! t$e &olice ,o%l! not sto& t$eir "$abit"
%nless t$e' receive! or!ers "(rom t$e to&." -egrettabl' not one o(
t$e com&lainants $as (ile! a (ormal c$allenge to t$e or!inances
incl%!ing Monsanto an! 2rieste ,$o are la,'ers an! co%l! $ave
been more assertive o( t$eir
rig$ts.
*ss%e: 6ON MM# Or! 11 an! Man!al%'ong Or! 7 are vali!. NO.
MM# s%stains Or!inance No. 11 )eries o( 1881 %n!er t$e
s&eci(ic a%t$orit' con(erre! %&on it b' 3O 18/ ,$ile
Or!inance No. 7 )eries o( 1888 is 9%sti(ie! on t$e basis o(
/78
t$e General 6el(are Cla%se embo!ie! in t$e LGC. *t is not
!is&%te! t$at bot$ meas%res ,ere enacte! to &romote t$e
com(ort an! convenience o( t$e &%blic an! to alleviate t$e
,orsening tra((ic &roblems in Metro&olitan Manila !%e in
large &art to violations o( tra((ic r%les.
vali! !elegation o( legislative &o,er: 1< t$e com&leteness o(
t$e stat%te ma+ing t$e !elegationA an! /< t$e &resence o( a
s%((icient stan!ar!.
@n!er t$e (irst re.%irement t$e stat%te m%st leave t$e
legislat%re com&lete in all its terms an! &rovisions s%c$ t$at
all t$e !elegate ,ill $ave to !o ,$en t$e stat%te reac$es it
is to im&lement it. 6$at onl' can be !elegate! is not t$e
!iscretion to !etermine ,$at t$e la, s$all be b%t t$e
!iscretion to !etermine $o, t$e la, s$all be en(orce!. 2$is
$as been !one in t$e case at bar.
#s a secon! re.%irement t$e en(orcement ma' be e((ecte!
onl' in accor!ance ,it$ a s%((icient stan!ar! t$e (%nction o(
,$ic$ is to ma& o%t t$e bo%n!aries o( t$e !elegateHs
a%t$orit' an! t$%s "&revent t$e !elegation (rom r%nning
riot." 2$is re.%irement $as also been met. *t is settle! t$at
t$e "convenience an! ,el(are" o( t$e &%blic &artic%larl' t$e
motorists an! &assengers in t$e case at bar is an
acce&table s%((icient stan!ar! to !elimit t$e !elegateHs
a%t$orit'.
B%t t$e &roblem be(ore %s is not t$e vali!it' o( t$e
!elegation o( legislative &o,er. 2$e .%estion ,e m%st
resolve is t$e vali!it' o( t$e e4ercise o( s%c$ !elegate!
&o,er. 2$e meas%res in .%estion are enactments o( local
governments acting onl' as agents o( t$e national
legislat%re. Necessaril' t$e acts o( t$ese agents m%st
re(lect an! con(orm to t$e ,ill o( t$eir &rinci&al. 2o test t$e
vali!it' o( s%c$ acts in t$e s&eci(ic case no, be(ore %s ,e
a&&l' t$e &artic%lar re.%isites o( a vali! or!inance as lai!
!o,n b' t$e acce&te! &rinci&les governing m%nici&al
cor&orations.
3lliot: a m%nici&al or!inance to be vali!: 1< m%st not
contravene t$e Constit%tion or an' stat%teA /< m%st not be
%n(air or o&&ressiveA 1< m%st not be &artial or
!iscriminator'A 0< m%st not &ro$ibit b%t ma' reg%late tra!eA
C< m%st not be %nreasonableA an! G< m%st be general an!
consistent ,it$ &%blic &olic'.
Gonong !ecision: meas%res %n!er consi!eration !o not &ass
t$e (irst criterion beca%se t$e' !o not con(orm to e4isting
la,. 2$e &ertinent la, is =D 1G5C ,$ic$ !oes not allo,
eit$er t$e removal o( license &lates or t$e con(iscation o(
!riverHs licenses (or tra((ic violations committe! in
Metro&olitan Manila. 2$ere is not$ing in t$e (ollo,ing
&rovisions o( t$e !ecree a%t$oriBing t$e Metro&olitan Manila
Commission ;an! no, t$e Metro&olitan Manila #%t$orit'< to
im&ose s%c$ sanctions. *n (act t$e &rovisions &ro$ibit t$e
im&osition o( s%c$ sanctions in Metro&olitan Manila. 2$e
Commission ,as allo,e! to "im&ose (ines an! ot$er,ise
!isci&line" tra((ic violators onl' "in s%c$ amo%nts an! %n!er
s%c$ &enalties as are $erein &rescribe!" t$at is b' t$e
!ecree itsel(. No,$ere is t$e removal o( license &lates
!irectl' im&ose! b' t$e !ecree or at least allo,e! b' it to be
im&ose! b' t$e Commission. Notabl' )ection C t$ereo(
e4&ressl' &rovi!es t$at "in case o( tra((ic violations t$e
!riverHs license s$all not be con(iscate!." 2$ese restrictions
are a&&licable to t$e Metro&olitan Manila #%t$orit' an! all
ot$er local &olitical s%b!ivisions com&rising Metro&olitan
Manila incl%!ing t$e M%nici&alit' o( Man!al%'ong.
2$e re.%irement t$at t$e m%nici&al enactment m%st not
violate e4isting la, e4&lains itsel(. Local &olitical
s%b!ivisions are able to legislate onl' b' virt%e o( a vali!
!elegation o( legislative &o,er (rom t$e national legislat%re
;e4ce&t onl' t$at t$e &o,er to create t$eir o,n so%rces o(
reven%e an! to lev' ta4es is con(erre! b' t$e Constit%tion
itsel(<. 2$e' are mere agents veste! ,it$ ,$at is calle! t$e
&o,er o( s%bor!inate legislation. #s !elegates o( t$e
Congress t$e local government %nit cannot contravene b%t
m%st obe' at all times t$e ,ill o( t$eir &rinci&al. *n t$e case
be(ore %s t$e enactments in .%estion ,$ic$ are merel'
local in origin cannot &revail against t$e !ecree ,$ic$ $as
t$e (orce an! e((ect o( a stat%te. 2$e sel(Dserving lang%age
o( )ection / o( t$e c$allenge! or!inance is ,ort$ noting.
C%rio%sl' it is t$e meas%re itsel( ,$ic$ ,as enacte! b' t$e
Metro&olitan Manila #%t$orit' t$at a%t$oriBes t$e
Metro&olitan Manila #%t$orit' to im&ose t$e .%estione!
sanction.
Killacorta vs Bernar!o: t$e Co%rt n%lli(ie! an or!inance
enacte! b' t$e M%nici&al Boar! o( Dag%&an Cit' (or being
violative o( t$e Lan! -egistration #ct. 2$e &o,ers o( t$e
/85
boar! in enacting s%c$ a la%!able or!inance cannot be $el!
vali! ,$en it s$all im&e!e t$e e4ercise o( rig$ts grante! in a
general la, an!?or ma+e a general la, s%bor!inate! to a
local or!inance.
2o s%stain t$e or!inance ,o%l! be to o&en t$e (loo!gates to
ot$er or!inances amen!ing an! so violating national la,s in
t$e g%ise o( im&lementing t$em. 2$%s or!inances co%l! be
&asse! im&osing a!!itional re.%irements (or t$e iss%ance o(
marriage licenses to &revent bigam'A t$e registration o(
ve$icles to minimiBe carna&&ingA t$e e4ec%tion o(
contracts to (orestall (ra%!A t$e vali!ation o( &arts to !eter
im&ost%reA t$e e4ercise o( (ree!om o( s&eec$ to re!%ce
!isor!erA an! so on. 2$e list is en!less b%t t$e means even
i( t$e en! be vali! ,o%l! be %ltra vires.
2$e meas%res in .%estion !o not merel' a!! to t$e
re.%irement o( =D 1G5C b%t ,orse im&ose sanctions t$e
!ecree !oes not allo, an! in (act act%all' &ro$ibits. *n so
!oing t$e or!inances !isregar! an! violate an! in e((ect
&artiall' re&eal t$e la,.
6e $ere em&$asiBe t$e r%ling in t$e Gonong case t$at =D
1G5C a&&lies onl' to t$e Metro&olitan Manila area. *t is an
e4ce&tion to t$e general a%t$orit' con(erre! b' -.#. No. 011
on t$e Commissioner o( Lan! 2rans&ortation to &%nis$
violations o( tra((ic r%les else,$ere in t$e co%ntr' ,it$ t$e
sanction t$erein &rescribe! incl%!ing t$ose $ere
.%estione!.
Manila %lectric Co. v. Cit# o! Manila
Facts: On October /5 185/ t$e =$ili&&ine Commission enacte! #ct
No. 080 section 1 o( ,$ic$ a%t$oriBes t$e Cit' o( Manila to grant to
t$e "&erson or &ersons ma+ing t$e most (avorable bi! as
$ereina(ter &rovi!e! a (ranc$ise to constr%ct an! maintain in t$e
streets o( Manila an! its s%b%rbs an electric street rail,a' an! a
(ranc$ise to constr%ct maintain an! o&erate an electric lig$t $eat
an! &o,er s'stem in t$e Cit' o( Manila an! its s%b%rbs." B' virt%e
o( sai! #ct t$e Cit' o( Manila &asse! on Marc$ /0 1851 Or!inance
No. 00 granting t$e (ranc$ise to one C$arles M. ),i(t as t$e
$ig$est bi!!er. )ai! #ct No. 080 an! Or!inance No. 00 ,ere later
amen!e! b' #ct No. 111/ an! Or!inances Nos. 75 71 100 1G7
18/ /7/ 085 851 888 11G/ 1/00 an! 107G ,$ic$ !eal ,it$ t$e
sale an! trans(er o( t$e (ranc$ise o( t$e Com&aRia !e 2ranvias !e
Fili&inas to t$e &lainti(( in #&ril 1850.
On Marc$ /7 1851 t$e &lainti(( t$en +no,n as "Manila -ail,a's
an! Lig$t Com&an'" ac.%ire! t$e sai! (ranc$ise (rom C$arles M.
),i(t toget$er ,it$ all t$e rig$ts &rivileges an! obligations
a&&%rtenant t$ereto. 2$e &lainti(( $as since t$en establis$e!
electric car lines along certain streets o( t$e Cit' o( Manila an!
s%b%rbs ,$ic$ $ave no, an! t$en been altere! ,it$ t$e e4&ress
consent eit$er o( t$e Cit' o( Manila or o( t$e =$ili&&ine Legislat%re.
#s grantee o( t$e (ranc$ise t$e &lainti(( cor&oration agree! to &a'
an! $as to !ate been &a'ing to t$e Cit' o( Manila / 1?/ &er cent
"o( t$e (ares collecte! an! tic+ets sol! ,it$in t$e limits o( t$e Cit'
o( Manila an! t$e same &ercentage o( (ares collecte! an! tic+ets
sol! ,it$o%t t$e sai! limits to t$e &ro&er m%nici&alit' or
m%nici&alities o( t$e =rovince o( -iBal." *n 18/7 t$e &lainti(( a&&lie!
(or an! obtaine! (rom t$e =%blic )ervice Commission certi(icates o(
&%blic convenience to o&erate as it !i! in 18/8 an a%tob%s service
along t$e streets !istricts an! s%b%rbs o( t$e Cit' o( Manila not
covere! b' its electric car lines. #lleging t$at t$ese a%tob%s service
,as incl%!e! in t$e (ranc$ise grante! t$e &lainti(( %n!er Or!inance
No. 00 t$e !e(en!ant an! a&&ellee Cit' o( Manila collecte! (rom
t$e &lainti(( S ,$o $a! to &a' %n!er &rotest S a ta4 o( / 1?/ &er
cent o( t$e (ares collecte! an! tic+et sol! in its a%tob%s lines ,it$in
t$e Cit' o( Manila (rom #&ril 18/8 to November 181/ amo%nting
to =018G8.5G. 2$e &resent action ,as instit%te! to recover t$is
ta4.
2$e &lainti(( iss%es trans(er tic+ets ,$ic$ entitle t$e $ol!er o(
reg%lar (are to trans(er (rom a street car to an a%tob%s an! viceD
versa ,it$o%t e4tra c$arge alt$o%g$ t$is &rivilege is not e4ten!e!
to Bone (are &assengers.
*ss%e: 6ON t$e a%tob%s b%siness o( t$e &lainti(( is incl%!e! in t$e
(ranc$ise grante! to it b' Or!inance No. 00 o( t$e Cit' o( Manila
an! in case it is i( t$e !e(en!ant $as an' rig$t to collect t$e ta4 o(
/ 1?/ &er cent (rom t$e (ares collecte! an! tic+ets sol! in t$e
b%siness as &rescribe! in sai! or!inance.
)ection / o( #ct No. 111/ amen!ing Or!inance No. 00 o(
t$e Cit' o( Manila inserte! bet,een &aragra&$s / an! 1 o(
t$e (irst &art o( sai! or!inance t$e (ollo,ing &aragra&$ /
;a<: 2$e Manila 3lectric -ailroa! an! Lig$t Com&an' s$all be
a%t$oriBe! to ma+e e4cavations an! constr%ctions (or t$e
&%r&oses &rescribe! in =art One o( sai! Or!inance
/81
N%mbere! Fort'D(o%r %&on s%c$ (%rt$er streets
t$oro%g$(ares bri!ges an! &%blic &laces ,it$in t$e Cit' o(
Manila as ma' (rom time to time be a&&rove! b' t$e
M%nici&al Boar!.
2$e &%r&ose o( t$is legal &rovision a%t$oriBing t$e Manila
3lectric Com&an' to ma+e e4cavations an! constr%ctions
%&on (%rt$er streets t$oro%g$(ares bri!ges an! &%blic
&laces ,it$in t$e Cit' o( Manila is no ot$er t$an t$e
constr%ction an! maintenance o( a net o( electric car lines.
2$is broa!ening o( t$e a%t$oriBation cannot be constr%e! as
&ermitting t$e &lainti(( to establis$ a%tob%s lines along t$e
streets o( Manila an! s%b%rbs not s&eci(ie! in t$e original
a%t$oriBation beca%se as ,e $ave alrea!' sai! t$e
&%r&ose o( t$e a!!itional a%t$oriBation ,as to enable t$e
&lainti(( to constr%ct an! maintain a net o( electric car lines
in ot$er streets o( Manila. F%rt$ermore to establis$ a%tob%s
lines it is not necessar' to ma+e e4cavations %&on t$e
streets. 2$is is onl' re.%ire! ,$en la'ing o%t rails (or
electric cars.
Neit$er t$e letter nor t$e s&irit o( t$e la, t$ere(ore
a%t$oriBes t$at t$e (ranc$ise grante! t$e &lainti(( b' t$e Cit'
o( Manila be constr%e! to incl%!e t$e establis$ment o(
a%tob%s lines.
*t is tr%e t$at in t$e case o( t$e Cit' o( Manila vs. =%blic
)ervice Commission t$is co%rt inter&reting &aragra&$ 0 o(
#ct No. 080 ,$ic$ a%t$oriBes t$e &lainti(( b' virt%e o( its
(ranc$ise to mo!i(' im&rove or c$ange its s'stem o(
electric rail,a's s%c$ as t$e &rogress o( science an! t$e
!evelo&ment o( motive &o,er ma' ma+e reasonable an!
&ro&er sai! t$at t$e &lainti(( mig$t aban!on t$e %se o(
electric cars an! s%bstit%te a%tob%sses in t$eir stea! ,$ic$
is a better means o( trans&ortation an! %n!er t$e (ranc$ise
t$e grantee is a%t$oriBe! to ma+e im&rovements in its
s'stem ,it$ t$e a&&roval o( t$e Cit' o( Manila. 2$at case
!ealt ,it$ t$e s%bstit%tion o( a%tob%s lines along t$e same
streets an! &%blic t$oro%g$(ares ,$ere electric car lines
alrea!' e4iste!. *t ,as not t$e intention o( t$is co%rt an! it
$as not so !eclare! t$at t$e Manila 3lectric Com&an'
cannot establis$ a%tob%s lines along streets an! &%blic
t$oro%g$(ares ,$ere electric rail,a's $ave not 'et been
establis$e!.
6$en &%blic convenience so re.%ires t$e =$ili&&ine
Legislat%re can a%t$oriBe ot$er trans&ortation com&anies to
%se t$e streets an! &%blic t$oro%g$(ares ,$ere t$e Manila
3lectric Com&an' $as not establis$e! electric rail,a's nor
signi(ie! its intention to !o so since s%c$ a%t$oriBation !oes
not violate t$e terms an! con!itions o( t$e &lainti((Hs
(ranc$ise. *m&lie!l' t$is ,as !one ,$en it create! t$e
o((ice o( t$e =%blic )ervice Commission c$arge! ,it$ t$e
tas+ o( loo+ing a(ter t$e com(ort o( t$e &%blic as regar!s
trans&ortation ,it$ &o,er to grant a certi(icate o( &%blic
convenience to a com&an' !esiring to o&erate a &assenger
trans&ortation service ,$en in its 9%!gment it ,ill serve
t$e interest o( t$e &%blic. Li+e an' ot$er com&an' engage!
in &assenger trans&ortation t$e Manila 3lectric Com&an'
$as t$e rig$t to sec%re (rom t$e =%blic )ervice Commission
a certi(icate o( &%blic convenience a%t$oriBing it to establis$
a%tob%s lines (or &%blic trans&ortation. 2$is means o(
trans&ortation being !istinct an! !i((erent (rom t$e one
a%t$oriBe! %n!er t$e (ranc$ise grante! to it t$e Manila
3lectric Com&an' is not controlle! is not controlle! b' t$at
(ranc$ise ,it$ res&ect to its a%tob%s service b%t b' t$e la,
t$at reg%late t$e o&eration o( lan! trans&ortation com&anies
ren!ering service to t$e &%blic. Neit$er can it be com&elle!
to &a' to t$e Cit' o( Manila t$e ta4 o( / 1?/ &er cent o( t$e
(ares collecte! an! tic+ets sol! ,it$in t$e cit' limits (or
%sing a%tob%sses ,$ic$ $ave no relation at all ,it$ its
electric rail,a's alrea!' e4isting or 'et to be establis$e!.
2$e (act t$at t$e Manila 3lectric Com&an' iss%es trans(er
tic+et ,$ic$ &ermit &%rc$asers o( reg%lar (ares ;not Bone
(ares< coming (rom o%tsi!e t$e Cit' o( Manila to trans(er
(rom a street car to an a%tob%s an! viceDversa !oes not
ma+e &lainti((Hs a%tob%s s'stem a &art o( its rail,a' s'stem
since s%c$ iss%ance o( trans(er tic+ets is onl' acci!ent an!
not essential in t$e o&eration o( its rail,a' s'stem
establis$e! %n!er t$e a%t$orit' o( its (ranc$ise.
Laguna La:e *evelopment Authorit# v. CA
Facts: -# 08C5 ,as enacte! creating t$e LLD# to carr' o%t
environmental &rotection an! ecolog' navigational sa(et' an!
s%stainable !evelo&ment. =D 811 amen!e! t$e -# beca%se o( t$e
concern (or t$e ra&i! e4&ansion o( Metro&olitan Manila t$e s%b%rbs
/8/
an! t$e la+es$ore to,ns o( Lag%na !e Ba' combine! ,it$ c%rrent
an! &ros&ective %ses o( t$e la+e (or m%nici&alDin!%strial ,ater
s%&&l' irrigation (is$eries an! t$e li+e. 2o more e((ectivel'
&er(orm t$e role o( t$e #%t$orit' 3O 8/7 (%rt$er !e(ine! an!
enlarge! t$e (%nctions an! &o,ers o( t$e #%t$orit' an! name! an!
en%merate! t$e to,ns cities an! &rovinces encom&asse! b' t$e
term "Lag%na !e Ba' -egion". )ection /8 o( =D 811 !e(ine! t$e
term "Lag%na La+e" in t$is manner: 6$enever Lag%na La+e or la+e
is %se! in t$is #ct t$e same s$all re(er to Lag%na !e Ba' ,$ic$ is
t$at area covere! b' t$e la+e ,ater ,$en it is at t$e average
ann%al ma4im%m la+e level o( elevation 1/.C5 meters as re(erre!
to a !at%m 15.55 meters belo, mean lo,er lo, ,ater ;M.L.L.6<.
Lan!s locate! at an! belo, s%c$ elevation are &%blic lan!s ,$ic$
(orm &art o( t$e be! o( sai! la+e.2$en came -e&%blic #ct No. 71G5
t$e LGC o( 1881. 2$e m%nici&alities in t$e Lag%na La+e -egion
inter&rete! t$e &rovisions o( t$is la, to mean t$at t$e ne,l'
&asse! la, gave m%nici&al governments t$e e4cl%sive 9%ris!iction
to iss%e (is$ing &rivileges ,it$in t$eir m%nici&al ,aters beca%se o(
-.#. 71G5. M%nici&al governments t$ere%&on ass%me! t$e
a%t$orit' to iss%e (is$ing &rivileges an! (is$&en &ermits. Big (is$&en
o&erators too+ a!vantage o( t$e occasion to establis$ (is$&ens an!
(is$cages to t$e consternation o( t$e #%t$orit'. @nreg%late!
(is$&ens an! (is$cages as o( 7%l' 188C occ%&ie! almost oneDt$ir!
o( t$e entire la+e ,ater s%r(ace area increasing t$e occ%&ation
!rasticall' (rom 7555 $ectares in 1885 to almost /1555 $ectares
in 188C. 2$e Ma'orHs &ermit to constr%ct (is$&ens an! (is$cages
,ere all %n!erta+en in violation o( t$e &olicies a!o&te! b' t$e
#%t$orit' on (is$&en Boning an! t$e Lag%na La+e carr'ing ca&acit'.
2o be s%re t$e im&lementation b' t$e la+es$ore m%nici&alities o(
se&arate in!e&en!ent &olicies in t$e o&eration o( (is$&ens an!
(is$cages ,it$in t$eir claime! territorial m%nici&al ,aters in t$e
la+e an! t$eir in!iscriminate grant o( (is$&en &ermits $ave alrea!'
sat%rate! t$e la+e area ,it$ (is$&ens t$ereb' aggravating t$e
c%rrent environmental &roblems an! ecological stress o( Lag%na
La+e. -amos t$en iss%e! instr%ctions t$at all str%ct%res in t$e L!B
not registere! ,it$ t$e LLD# are illegal. -eacting t$ereto t$e
a((ecte! (is$&en o,ners (ile! in9%nction cases against t$e #%t$orit'
be(ore vario%s -2Cs. 2$e #%t$orit' (ile! motions to !ismiss t$e
cases against it on 9%ris!ictional gro%n!s. 2$e motions to !ismiss
,ere invariabl' !enie!. Mean,$ile tem&orar' restraining
or!er?,rits o( &reliminar' man!ator' in9%nction ,ere iss%e! in Civil
Cases Nos. G01/0 7C8 an! CGG en9oining t$e #%t$orit' (rom
!emolis$ing t$e (is$&ens an! similar str%ct%res in .%estion.
Hence t$e $erein &etition (or certiorari &ro$ibition an! in9%nction
G.-. Nos. 1/58GCD71 ,ere (ile! b' t$e #%t$orit' ,it$ t$is co%rt.
C#: !ismisse! t$e #%t$orit'Hs consoli!ate! &etitions t$e Co%rt o(
#&&eals $ol!ing t$at: ;#< LLD# is not among t$ose .%asiD9%!icial
agencies o( government ,$ose !ecision or or!er are a&&ealable
onl' to t$e Co%rt o( #&&ealsA ;B< t$e LLD# c$arter !oes vest LLD#
,it$ .%asiD9%!icial (%nctions inso(ar as (is$&ens are concerne!A ;C<
t$e &rovisions o( t$e LLD# c$arter inso(ar as (is$ing &rivileges in
Lag%na !e Ba' are concerne! $a! been re&eale! b' t$e LGC o(
1881A ;D< in vie, o( t$e a(oresai! re&eal t$e &o,er to grant
&ermits !evolve! to an! is no, veste! ,it$ t$eir res&ective local
government %nits concerne!.
*ss%e: 6$ic$ agenc' o( t$e Government S t$e Lag%na La+e
Develo&ment #%t$orit' or t$e to,ns an! m%nici&alities com&rising
t$e region S s$o%l! e4ercise 9%ris!iction over t$e Lag%na La+e an!
its environs inso(ar as t$e iss%ance o( &ermits (or (is$er' &rivileges
is concerne!T
)ection 0 ;+< o( t$e c$arter o( t$e Lag%na La+e Develo&ment
#%t$orit' -e&%blic #ct No. 08C5 t$e &rovisions o(
=resi!ential Decree No. 811 an! )ection / o( 34ec%tive
Or!er No. 8/7 cite! above s&eci(icall' &rovi!e t$at t$e
Lag%na La+e Develo&ment #%t$orit' s$all $ave e4cl%sive
9%ris!iction to iss%e &ermits (or t$e %se o( all s%r(ace ,ater
(or an' &ro9ects or activities in or a((ecting t$e sai! region
incl%!ing navigation constr%ction an! o&eration o(
(is$&ens (is$ enclos%res (is$ corrals an! t$e li+e. On t$e
ot$er $an! -e&%blic #ct No. 71G5 t$e LGC o( 1881 $as
grante! to t$e m%nici&alities t$e e4cl%sive a%t$orit' to
grant (is$er' &rivileges in m%nici&al ,aters. 2$e
)angg%niang Ba'an ma' grant (is$er' &rivileges to erect
(is$ corrals o'ster m%ssels or ot$er a.%atic be!s or bang%s
(r' area ,it$in a !e(inite Bone o( t$e m%nici&al ,aters.
6e $ol! t$at t$e &rovisions o( -e&%blic #ct No. 71G5 !o not
necessaril' re&eal t$e a(orementione! la,s creating t$e
Lag%na La+e Develo&ment #%t$orit' an! granting t$e latter
,ater rig$ts a%t$orit' over Lag%na !e Ba' an! t$e la+e
region.
2$e LGC o( 1881 !oes not contain an' e4&ress &rovision
,$ic$ categoricall' e4&ressl' re&eal t$e c$arter o( t$e
/81
#%t$orit'. *t $as to be conce!e! t$at t$ere ,as no intent on
t$e &art o( t$e legislat%re to re&eal -e&%blic #ct No. 08C5
an! its amen!ments. 2$e re&eal o( la,s s$o%l! be ma!e
clear an! e4&resse!.
*t $as to be conce!e! t$at t$e c$arter o( t$e Lag%na La+e
Develo&ment #%t$orit' constit%tes a s&ecial la,. -e&%blic
#ct No. 71G5 t$e LGC o( 1881 is a general la,. *t is basic in
stat%tor' constr%ction t$at t$e enactment o( a later
legislation ,$ic$ is a general la, cannot be constr%e! to
$ave re&eale! a s&ecial la,. *t is a ,ellDsettle! r%le in t$is
9%ris!iction t$at "a s&ecial stat%te &rovi!e! (or a &artic%lar
case or class o( cases is not re&eale! b' a s%bse.%ent
stat%te general in its terms &rovisions an! a&&lication
%nless t$e intent to re&eal or alter is mani(est alt$o%g$ t$e
terms o( t$e general la, are broa! eno%g$ to incl%!e t$e
cases embrace! in t$e s&ecial la,."
6$ere t$ere is a con(lict bet,een a general la, an! a
s&ecial stat%te t$e s&ecial stat%te s$o%l! &revail since it
evinces t$e legislative intent more clearl' t$an t$e general
stat%te. 2$e s&ecial la, is to be ta+en as an e4ce&tion to t$e
general la, in t$e absence o( s&ecial circ%mstances (orcing
a contrar' concl%sion. 2$is is beca%se im&lie! re&eals are
not (avore! an! as m%c$ as &ossible e((ect m%st be given
to all enactments o( t$e legislat%re. # s&ecial la, cannot be
re&eale! amen!e! or altere! b' a s%bse.%ent general la,
b' mere im&lication. 2$%s it $as to be concl%!e! t$at t$e
c$arter o( t$e #%t$orit' s$o%l! &revail over t$e LGC o( 1881.
Consi!ering t$e reasons be$in! t$e establis$ment o( t$e
#%t$orit' ,$ic$ are environmental &rotection navigational
sa(et' an! s%stainable !evelo&ment t$ere is ever'
in!ication t$at t$e legislative intent is (or t$e #%t$orit' to
&rocee! ,it$ its mission.
6e are on all (o%rs ,it$ t$e mani(estation o( &etitioner
Lag%na La+e Develo&ment #%t$orit' t$at "Lag%na !e Ba'
li+e an' ot$er single bo!' o( ,ater $as its o,n %ni.%e
nat%ral ecos'stem. 2$e 855 +me la+e s%r(ace ,ater t$e
eig$t ;8< ma9or river trib%taries an! several ot$er smaller
rivers t$at !rain into t$e la+e t$e /8/5 +me basin or
,aters$e! transcen!ing t$e bo%n!aries o( Lag%na an! -iBal
&rovinces greater &ortion o( Metro Manila &arts o( Cavite
Batangas an! W%eBon &rovinces constit%te one integrate!
!elicate nat%ral ecos'stem t$at nee!s to be &rotecte! ,it$
%ni(orm set o( &oliciesA i( ,e are to be serio%s in o%r aims o(
attaining s%stainable !evelo&ment. 2$is is an e4$a%stible
nat%ral reso%rce S a ver' limite! one S ,$ic$ re.%ires
9%!icio%s management an! o&timal %tiliBation to ens%re
rene,abilit' an! &reserve its ecological integrit' an!
balance." "Managing t$e la+e reso%rces ,o%l! mean t$e
im&lementation o( a national &olic' geare! to,ar!s t$e
&rotection conservation balance! gro,t$ an! s%stainable
!evelo&ment o( t$e region ,it$ !%e regar! to t$e interD
generational %se o( its reso%rces b' t$e in$abitants in t$is
&art o( t$e eart$. 2$e a%t$ors o( -e&%blic #ct 08C5 $ave
(oreseen t$is nee! ,$en t$e' &asse! t$is LLD# la, S t$e
s&ecial la, !esigne! to govern t$e management o( o%r
Lag%na !e Ba' la+e reso%rces." "Lag%na !e Ba' t$ere(ore
cannot be s%b9ecte! to (ragmente! conce&ts o(
management &olicies ,$ere la+es$ore local government
%nits e4ercise e4cl%sive !ominion over s&eci(ic &ortions o(
t$e la+e ,ater. 2$e garbage t$ro,n or se,age !isc$arge!
into t$e la+e abstraction o( ,ater t$ere(rom or constr%ction
o( (is$&ens b' enclosing its certain area a((ect not onl' t$at
s&eci(ic &ortion b%t t$e entire 855 +me o( la+e ,ater. 2$e
im&lementation o( a co$esive an! integrate! la+e ,ater
reso%rce management &olic' t$ere(ore is necessar' to
conserve &rotect an! s%stainabl' !evelo& Lag%na !e Ba'."
2$e &o,er o( t$e local government %nits to iss%e (is$ing
&rivileges ,as clearl' grante! (or reven%e &%r&oses. 2$is is
evi!ent (rom t$e (act t$at )ection 108 o( t$e Ne, LGC
em&o,ering local governments to iss%e (is$ing &ermits is
embo!ie! in C$a&ter / Boo+ ** o( -e&%blic #ct No. 71G5
%n!er t$e $ea!ing ")&eci(ic =rovisions On 2$e 2a4ing #n!
Ot$er -even%e -aising =o,er O( Local Government @nits."
On t$e ot$er $an! t$e &o,er o( t$e #%t$orit' to grant
&ermits (or (is$&ens (is$cages an! ot$er a.%aDc%lt%re
str%ct%res is (or t$e &%r&ose o( e((ectivel' reg%lating an!
monitoring activities in t$e Lag%na !e Ba' region ;)ection /
34ec%tive Or!er No. 8/7< an! (or la+e .%alit' control an!
management. G *t !oes &arta+e o( t$e nat%re o( &olice
&o,er ,$ic$ is t$e most &ervasive t$e least limitable an!
t$e most !eman!ing o( all )tate &o,ers incl%!ing t$e &o,er
o( ta4ation. #ccor!ingl' t$e c$arter o( t$e #%t$orit' ,$ic$
embo!ies a vali! e4ercise o( &olice &o,er s$o%l! &revail
over t$e LGC o( 1881 on matters a((ecting Lag%na !e Ba'.
/80
2$ere s$o%l! be no .%arrel over &ermit (ees (or (is$&ens
(is$cages an! ot$er a.%aDc%lt%re str%ct%res in t$e Lag%na
!e Ba' area. )ection 1 o( 34ec%tive Or!er No. 8/7 &rovi!es
(or t$e &ro&er s$aring o( (ees collecte!.
QQLLD#: reg%lator' an! .%asiD9%!icial bo!' in res&ect to &oll%tion
cases ,it$ a%t$orit' to iss%e a "cease an! !esist or!er" an! on
matters a((ecting t$e constr%ction o( illegal (is$&ens (is$cages an!
ot$er a.%aDc%lt%re str%ct%res in Lag%na !e Ba'. 2$e #%t$orit'Hs
&retense $o,ever t$at it is coDe.%al to t$e -egional 2rial Co%rts
s%c$ t$at all actions against it ma' onl' be instit%te! be(ore t$e
Co%rt o( #&&eals cannot be s%staine!. On actions necessitating t$e
resol%tion o( legal .%estions a((ecting t$e &o,ers o( t$e #%t$orit'
as &rovi!e! (or in its c$arter t$e -egional 2rial Co%rts $ave
9%ris!iction.
)ection 108 o( -e&%blic #ct No. 71G5 ot$er,ise +no,n as
t$e LGC o( 1881 $as not re&eale! t$e &rovisions o( t$e
c$arter o( t$e Lag%na La+e Develo&ment #%t$orit' -e&%blic
#ct No. 08C5 as amen!e!. 2$%s t$e #%t$orit' $as t$e
e4cl%sive 9%ris!iction to iss%e &ermits (or t$e en9o'ment o(
(is$er' &rivileges in Lag%na !e Ba' to t$e e4cl%sion o(
m%nici&alities sit%ate! t$erein an! t$e a%t$orit' to e4ercise
s%c$ &o,ers as are b' its c$arter veste! on it. -emoval (rom
t$e #%t$orit' o( t$e a(oresai! licensing a%t$orit' ,ill ren!er
n%gator' its avo,e! &%r&ose o( &rotecting an! !evelo&ing
t$e Lag%na La+e -egion. Ot$er,ise state! t$e abrogation
o( t$is &o,er ,o%l! ren!er %seless its reason (or being an!
,ill in e((ect !enigrate i( not abolis$ t$e Lag%na La+e
Develo&ment #%t$orit'. 2$is t$e LGC o( 1881 $a! never
inten!e! to !o.
Monano v. (ilvosa
Facts: Mosen!e (ile! a com&laint against Mon!ano ma'or o( t$e
m%nici&alit' o( Mainit &rovince o( )%rigao ,it$ t$e =resi!ential
Com&laints an! #ction Committee acc%sing $im o( ;1< ra&e
committe! on $er !a%g$ter Cari!a! Mosen!eA an! ;/< conc%binage
(or co$abiting ,it$ $er !a%g$ter in a &lace ot$er t$an t$e con9%gal
!,elling. On G Marc$ t$e #ssistant 34ec%tive )ecretar' in!orse!
t$e com&laint to t$e res&on!ent &rovincial governor (or imme!iate
investigation a&&ro&riate action an! re&ort. On 15 #&ril t$e
&etitioner a&&eare! be(ore t$e &rovincial governor in obe!ience to
$is s%mmons an! ,as serve! ,it$ a co&' o( t$e com&laint (ile! b'
t$e &rovincial governor ,it$ &rovincial boar!. On t$e same !a' t$e
&rovincial governor iss%e! #O 8 s%s&en!ing t$e &etitioner (rom
o((ice. 2$erea(ter t$e =rovincial Boar! &rocee!e! to $ear t$e
c$arges &re(erre! against t$e &etitioner over $is ob9ection. 2$e
&etitioner &ra's (or a ,rit o( &ro$ibition ,it$ &reliminar' in9%nction
to en9oin t$e res&on!ents (rom (%rt$er &rocee!ing ,it$ t$e $earing
o( t$e a!ministrative case against $im an! (or a !eclaration t$at
t$e or!er o( s%s&ension iss%e! b' t$e res&on!ent &rovincial
governor is illegal an! ,it$o%t legal e((ect. On 0 Ma' 18C0 t$e ,rit
o( &reliminar' in9%nction &ra'e! (or ,as iss%e! a(ter (iling an!
a&&roval o( a bon! (or =C55.
*ss%e: 6ON t$e &rovincial governor ma' iss%e an or!er o(
s%s&ension.
)ection 15 &aragra&$ 1 #rticle K** o( t$e Constit%tion
&rovi!es: "2$e =resi!ent s$all $ave control o( all t$e
e4ec%tive !e&artments b%rea%s or o((ices e4ercise general
s%&ervision over all local governments as ma' be &rovi!e!
b' la, an! ta+e care t$at t$e la,s be (ait$(%ll' e4ec%te!."
@n!er t$is constit%tional &rovision t$e =resi!ent $as been
investe! ,it$ t$e &o,er o( control o( all t$e e4ec%tive
!e&artments b%rea%s or o((ices b%t not o( all local
governments over ,$ic$ $e $as been grante! onl' t$e
&o,er o( general s%&ervision as ma' be &rovi!e! b' la,.
2$e De&artment $ea! as agent o( t$e =resi!ent $as !irect
control an! s%&ervision over all b%rea%s an! o((ices %n!er
$is 9%ris!iction as &rovi!e! (or in section 78 ;c< o( t$e
-evise! #!ministrative Co!e b%t $e !oes not $ave t$e
same control o( local governments as t$at e4ercise! b' $im
over b%rea%s an! o((ices %n!er $is 9%ris!iction. Li+e,ise $is
a%t$orit' to or!er t$e investigation o( an' act or con!%ct o(
an' &erson in t$e service o( an' b%rea% or o((ice %n!er $is
!e&artment is con(ine! to b%rea%s or o((ices %n!er $is
9%ris!iction an! !oes not e4ten! to local governments over
,$ic$ as alrea!' state! t$e =resi!ent e4ercises onl'
general s%&ervision as ma' be &rovi!e! b' la,. *( t$e
&rovisions o( section 78 ;c< o( t$e -evise! #!ministrative
Co!e are to be constr%e! as con(erring %&on t$e
corres&on!ing !e&artment $ea! !irect control !irection
an! s%&ervision over all local governments an! t$at (or t$e
reason $e ma' or!er t$e investigation o( an o((icial o( a local
government (or mal(easance in o((ice s%c$ inter&retation
,o%l! be contrar' to t$e &rovisions o( &aragra&$ 1 section
/8C
15 #rticle K** o( t$e Constit%tion. *( "general s%&ervision
over all local governments" is to be constr%e! as t$e same
&o,er grante! to t$e De&artment Hea! in section 78 ;c< o(
t$e -evise! #!ministrative Co!e t$en t$ere ,o%l! no
longer be a !istinction or !i((erence bet,een t$e &o,er o(
control an! t$at o( s%&ervision.
*n a!ministrative la, s%&ervision means overseeing or t$e
&o,er or a%t$orit' o( an o((icer to see t$at s%bor!inate
o((icers &er(orm t$eir !%ties. *( t$e latter (ail or neglect to
(%l(ill t$em t$e (ormer ma' ta+e s%c$ action or ste& as
&rescribe! b' la, to ma+e t$em &er(orm t$eir !%ties.
Control on t$e ot$er $an! means t$e &o,er o( an o((icer to
alter or mo!i(' or n%lli(' or set asi!e ,$at a s%bor!inate
o((icer $a! !one in t$e &er(ormance o( $is !%ties an! to
s%bstit%te t$e 9%!gment o( t$e (ormer (or t$at o( t$e latter.
)%c$ is t$e im&ort o( t$e &rovisions o( section 78 ;c< o( t$e
-evise! #!ministrative Co!e an! 17 o( #ct No. 0557. 2$e
Congress $as e4&ressl' an! s&eci(icall' lo!ge! t$e
&rovincial s%&ervision over m%nici&al o((icials in t$e
&rovincial governor ,$o is a%t$oriBe! to "receive an!
investigate com&laints ma!e %n!er oat$ against m%nici&al
o((icers (or neglect o( !%t' o&&ression corr%&tion or ot$er
(orm o( mala!ministration o( o((ice an! conviction b' (inal
9%!gment o( an' crime involving moral t%r&it%!e." #n! i( t$e
c$arges are serio%s "$e s$all s%bmit ,ritten c$arges
to%c$ing t$e matter to t$e &rovincial boar! (%rnis$ing a
co&' o( s%c$ c$arges to t$e acc%se! eit$er &ersonall' or b'
registere! mail an! $e ma' in s%c$ case s%s&en! t$e
o((icer ;not being t$e m%nici&al treas%rer< &en!ing action b'
t$e boar! i( in $is o&inion t$e c$arge be one a((ecting t$e
o((icial integrit' o( t$e o((icer in .%estion." 1 )ection 8G o(
t$e -evise! #!ministrative Co!e a!!s not$ing to t$e &o,er
o( s%&ervision to be e4ercise! b' t$e De&artment Hea! over
t$e a!ministration o( . . . m%nici&alities . . .. *( it be
constr%e! t$at it !oes an! s%c$ a!!itional &o,er is t$e
same a%t$orit' as t$at veste! in t$e De&artment Hea! b'
section 78 ;c< o( t$e -evise! #!ministrative Co!e t$en s%c$
a!!itional &o,er m%st be !eeme! to $ave been abrogate!
b' section 15 ;1< #rticle K** o( t$e Constit%tion.
Lacson vs. -o.%e: t$e &o,er o( t$e =resi!ent to remove
o((icials (rom o((ice as &rovi!e! (or in section G0 ;b< o( t$e
-evise! #!ministrative Co!e m%st be !one "con(ormabl' to
la,A" an! onl' (or !islo'alt' to t$e -e&%blic o( t$e
=$ili&&ines $e "ma' at an' time remove a &erson (rom an'
&osition o( tr%st or a%t$orit' %n!er t$e Government o( t$e
;=$ili&&ine *slan!s< =$ili&&ines." #gain t$is &o,er o(
removal m%st be e4ercise! con(ormabl' to la,.
*n t$e in!orsement to t$e &rovincial governor t$e #ssistant
34ec%tive )ecretar' re.%este! imme!iate investigation
a&&ro&riate action an! re&ort on t$e com&laint in!orse! to
$im an! calle! $is attention to section /181 o( t$e -evise!
#!ministrative Co!e ,$ic$ &rovi!es (or t$e instit%tion o(
9%!icial &rocee!ings b' t$e &rovincial (iscal %&on !irection o(
t$e &rovincial governor. *( t$e in!orsement o( t$e #ssistant
34ec%tive )ecretar' be ta+en as a !esignation o( t$e
&rovincial governor to investigate t$e &etitioner t$en $e
,o%l! onl' be acting as agent o( t$e 34ec%tive b%t t$e
investigation to be con!%cte! b' $im ,o%l! not be t$at
,$ic$ is &rovi!e! (or in sections /188 /188 an! /185 o( t$e
-evise! #!ministrative Co!e. 2$e c$arges &re(erre! against
t$e res&on!ent are not mal(easances or an' o( t$ose
en%merate! or s&eci(ie! in section /188 o( t$e -evise!
#!ministrative Co!e beca%se ra&e an! conc%binage $ave
not$ing to !o ,it$ t$e &er(ormance o( $is !%ties as ma'or
nor !o t$e' constit%te or involve" neglect o( !%t'
o&&ression corr%&tion or an' ot$er (orm o(
mala!ministration o( o((ice." 2r%e t$e' ma' involve moral
t%r&it%!e b%t be(ore t$e &rovincial governor an! boar! ma'
act an! &rocee! in accor!ance ,it$ t$e &rovisions o( t$e
-evise! #!ministrative Co!e re(erre! to a conviction b'
(inal 9%!gment m%st &rece!e t$e (iling b' t$e &rovincial
governor o( c$arges an! trial b' t$e &rovincial boar!. 3ven
t$e &rovincial (iscal cannot (ile an in(ormation (or ra&e
,it$o%t a s,orn com&laint o( t$e o((en!e! &art' ,$o is /8
'ears o( age an! t$e crime o( conc%binage cannot be
&rosec%te! b%t %&on s,orn com&laint o( t$e o((en!e!
s&o%se.0 2$e c$arges &re(erre! against t$e &etitioner
m%nici&al ma'or o( Mainit &rovince o( )%rigao not being
t$ose or an' o( t$ose s&eci(ie! in section /188 o( t$e
-evise! #!ministrative Co!e t$e investigation o( s%c$
c$arges b' t$e &rovincial boar! is %na%t$oriBe! an! illegal.
2$e s%s&ension o( t$e &etitioner as ma'or o( t$e
m%nici&alit' o( Mainit is conse.%entl' %nla,(%l an! ,it$o%t
a%t$orit' o( la,.
/8G
9ebron v. Re#es
Facts: *n t$e general elections $el! in 18C1 &etitioner Bernar!o
Hebron a member o( t$e Liberal =art' an! res&on!ent 3%lalio D.
-e'es o( t$e Nacionalista =art' ,ere electe! ma'or an! viceD
ma'or res&ectivel' o( sai! m%nici&alit' (or a term o( (o%r ;0<
'ears beginning (rom 7an%ar' 1 18C/ on ,$ic$ !ate t$e'
&res%mabl' ass%me! t$e a(orementione! o((ices. =etitioner
!isc$arge! t$e !%ties an! (%nctions o( ma'or contin%o%sl' %ntil
Ma' // or /0 18C0 ,$en $e receive! comm%nication t$at t$e
=resi!ent $as !eci!e! to ass%me !irectl' t$e investigation to t$e
a!ministrative c$arges against $im (or allege! o&&ression grave
ab%se o( a%t$orit' an! serio%s miscon!%ct in o((ice an! $as
!esignate! t$e =rovincial Fiscal o( t$at &rovince as )&ecial
*nvestigator o( t$e sai! c$arges. Hebron ,as also s%s&en!e! (rom
o((ice. 2$e KiceDMa'or ,as !irecte! to ass%me t$e o((ice o( #cting
Ma'or. 2$ere%&on -e'es acte! as ma'or o( Carmona an! t$e
=rovincial Fiscal o( Cavite investigate! t$e c$arges. #(ter $ol!ing
$earings in connection ,it$ sai! c$arges t$e &rovincial (iscal
s%bmitte! $is re&ort t$ereon on 7%l' 1C 18C0. )ince t$en t$e
matter $as been &en!ing in t$e O((ice o( t$e =resi!ent (or !ecision.
*nasm%c$ as t$e same !i! not a&&ear to be (ort$coming an! t$e
term o( &etitioner ,$o remaine! s%s&en!e! ,as abo%t to e4&ire
on Ma' 11 18CC $e instit%te! t$e &resent action (or .%o ,arranto
%&on t$e gro%n! t$at res&on!ent ,as illegall' $ol!ing t$e O((ice o(
Ma'or o( Carmona an! $a! %nla,(%ll' re(%se! an! still re(%se! to
s%rren!er sai! o((ice to &etitioner ,$o claime! to be entitle!
t$ereto. -es&on!ent an! t$e )olicitor General ,$o ,as allo,e! to
intervene (ile! t$eir res&ective ans,ers a!mitting s%bstantiall' t$e
main allegations o( (act in &etitionerHs com&laint b%t !en'ing t$e
allege! illegalit' o( &etitionerHs s%s&ension an! alleging t$at
res&on!ent ,as $ol!ing t$e o((ice o( t$e ma'or in com&liance ,it$
a vali! an! la,(%l or!er o( t$e =resi!ent. O,ing to t$e nat%re an!
im&ortance o( t$e iss%e t$%s raise! Dean Kicente G. )inco o( t$e
College o( La, @niversit' o( t$e =$ili&&ines an! =ro(essor 3nri.%e
M. Fernan!o ,ere allo,e! to intervene as amici c%riae. #t t$e
$earing o( t$is case t$e &arties as ,ell as t$e )olicitor General
an! sai! amici c%riae a&&eare! an! arg%e! e4tensivel'.
)%bse.%entl' t$e' (ile! t$eir res&ective memoran!a an! on
)e&tember / 18CC t$e case became s%bmitte! (or !ecision. 2$e
case co%l! not be !is&ose! o( $o,ever be(ore t$e close o( sai!
'ear beca%se t$e members o( t$is Co%rt co%l! not ,it$in t$e
%ne4&ire! &ortion t$ereo( reac$ an agreement on t$e !ecision
t$ereon. #lt$o%g$ t$e term o( o((ice o( &etitioner $erein e4&ire! on
December 11 18CC $is claim to t$e O((ice o( Ma'or o( Carmona
Cavite $as not t$ereb' become entirel' moot as regar!s s%c$
rig$ts as ma' $ave accr%e! to $im &rior t$ereto. For t$is reason
an! also beca%se t$e .%estion o( la, &ose! in t$e &lea!ings
concerns a vital (eat%re o( t$e relations bet,een t$e national
government an! t$e local governments an! t$e Co%rt $as been le!
to believe t$at t$e &arties s&eciall' t$e e4ec%tive !e&artment are
earnestl' intereste! in a clearDc%t settlement o( sai! .%estion (or
t$e same ,ill ot$er,ise contin%e to be a constant so%rce o(
(riction !is&%tes an! litigations to t$e !etriment o( t$e smoot$
o&eration o( t$e Government an! o( t$e ,el(are o( t$e &eo&le t$e
members o( t$is Co%rt !eem it necessar' to e4&ress t$eir vie,
t$ereon a(ter ta+ing am&le time to consi!er an! !isc%ss (%ll ever'
conceivable as&ect t$ereo(.
*ss%e: 6ON a m%nici&al ma'or not c$arge! ,it$ !islo'alt' to t$e
-e&%blic o( t$e =$ili&&ines ma' be remove! or s%s&en!e! !irectl'
b' t$e =resi!ent o( t$e =$ili&&ines regar!less o( t$e &roce!%re set
(ort$ in sections /188 to /181 o( t$e -evise! #!ministrative Co!e.
%n!er t$e &resent la, t$e &roce!%re &rescribe! in sections
/188 to /181 o( t$e -evise! #!ministrative Co!e (or t$e
s%s&ension an! removal o( t$e m%nici&al o((icials t$erein
re(erre! to is man!ator'A t$at in t$e absence o( a clear an!
e4&licit &rovision to t$e contrar' relative &artic%larl' to
m%nici&al cor&orations S an! none $as been cite! to %s S
sai! &roce!%re is e4cl%siveA t$at t$e e4ec%tive !e&artment
o( t$e national government in t$e e4ercise o( its general
s%&ervision over local governments ma' con!%ct
investigations ,it$ a vie, to !etermining ,$et$er m%nici&al
o((icials are g%ilt' o( acts or omissions ,arranting t$e
a!ministrative action re(erre! to in sai! sections as a
means onl' to ascertain ,$et$er t$e &rovincial governor
an! t$e &rovincial boar! s$o%l! ta+e s%c$ actionA t$at t$e
34ec%tive ma' ta+e a&&ro&riate meas%res to com&el t$e
&rovincial governor an! t$e &rovincial boar! to ta+e sai!
action i( t$e same is ,arrante! an! t$e' (aile! to !o so
t$e &rovincial governor an! t$e &rovincial boar! ma' not be
!e&rive! b' t$e 34ec%tive o( t$e &o,er to e4ercise t$e
a%t$orit' con(erre! %&on t$em in sections /188 to /185 o(
t$e -evise! #!ministrative Co!eA t$at s%c$ ,o%l! be t$e
/87
e((ect o( t$e ass%m&tion o( t$ose &o,ers b' t$e 34ec%tiveA
t$at sai! ass%m&tion o( &o,ers ,o%l! (%rt$er violate section
/181 o( t$e same co!e (or t$e a%t$orit' t$erein veste! in
t$e 34ec%tive is merel' a&&ellate in c$aracterA t$at sai!
ass%m&tion o( &o,ers in t$e case at bar even e4cee!e!
t$ose o( t$e =rovincial Governor an! =rovincial Boar! in
,$om original 9%ris!iction is veste! b' sai! sections /188 to
/185 (or &%rs%ant t$ereto "t$e &reventive s%s&ension o( a
m%nici&al o((icer s$all not be (or more t$an 15 !a's" at t$e
e4&iration o( ,$ic$ $e s$all be reinstate! %nless t$e !ela'
in t$e !ecision o( t$e case is !%e to $is (a%lt neglect or
re.%est or %nless $e s$all $ave mean,$ile been convicte!
,$ereas &etitioner $erein ,as s%s&en!e! "%ntil t$e (inal
!etermination o( t$e &rocee!ings" against $im regar!less
o( t$e !%ration t$ereo( an! ca%se o( t$e !ela' in its
!is&ositionA11 an! t$at so m%c$ o( t$e r%le lai! !o,n in
Killena vs. )ecretar' o( t$e *nterior ;G7 =$il. 0C1< Killena vs.
-o.%e ;81 =$il. 1G1< as ma' be inconsistent ,it$ t$e
(oregoing vie,s s$o%l! be !eeme! an! are $ereb'
reverse! or mo!i(ie! accor!ingl'.
Ganzon v. .a#anan
Facts: On #%g%st /C 18CG -osales lo!ge! a veri(ie! com&laint
against GanBon (or ta+ing a!vantage o( $is &%blic &osition. On
)e&tember 11 18CG t$e 34ec%tive )ecretar' b' a%t$orit' o( t$e
=resi!ent !esignate! Ma'anan to con!%ct t$e investigation o( sai!
com&laint &%rs%ant to t$e &rovisions o( )ection G0;c< o( t$e -#C
granting Ma'anan all t$e &o,ers given to an investigating o((icer b'
)ections 71 an! C85 o( t$e same Co!e. On )e&tember 18 18CG
res&on!ent serve! a co&' o( t$e com&laint on &etitioner an! set
t$e investigation o( t$e c$arges on )e&tember /5 18CG. =etitioner
$aving (ile! a motion (or &ost&onement res&on!ent !e(initel' set
t$e investigation (or )e&tember /C an! /G 18CG. On )e&tember
/0 18CG GanBon instit%te! in t$e CF* an action (or &ro$ibition ,it$
&reliminar' in9%nction .%estioning t$e a%t$orit' o( t$e =resi!ent to
or!er $is investigation an! &ra'ing t$at res&on!ent be en9oine! to
s%s&en! an! !esist (rom &rocee!ing ,it$ t$e investigation an!
t$at &en!ing !ecision o( t$e case on t$e merits a &reliminar'
in9%nction be iss%e! against res&on!ent. On )e&tember /G 18CG
t$e lo,er co%rt !ecline! to iss%e t$e ,rit an! instea! set t$e case
(or $earing on t$e merits on )e&tember /8 18CG. #t t$e $earing
bot$ &arties agree! to a!mit all t$e (acts set (ort$ in t$e &lea!ings
an! s%bmitte! t$e case (or !ecision. #n! on October / 18CG t$e
lo,er co%rt ren!ere! !ecision !ismissing t$e &etition. His motion
(or reconsi!eration $aving been !enie! &etitioner too+ t$e &resent
a&&eal.
*ss%es: 1. 6ON t$e =resi!ent o( t$e =$ili&&ines $as t$e &o,er an!
a%t$orit' %n!er o%r Constit%tion an! t$e la,s at &resent in (orce in
t$is 9%ris!iction to investigate t$e ma'or o( a cit' an! i( (o%n!
g%ilt' to ta+e !isci&linar' action against $im as t$e evi!ence an!
la, ma' ,arrant.
*loilo c$arter !oes not contain an' &rovision as regar!s t$e
&roce!%re b' ,$ic$ $e ma' be remove!. Nevert$eless as
t$is Co%rt $as once sai! "t$e rig$ts !%ties an! &rivileges
o( m%nici&al o((icers ;incl%!ing cit' o((icials< !o not $ave to
be embo!ie! in t$e c$arter b%t ma' be reg%late! b'
&rovisions o( general a&&lication s&eciall' i( t$ese are
incor&orate! in t$e same co!e o( ,$ic$ t$e cit' organic la,
(orms a &art". 2$e co!e $erein re(erre! to is t$e -evise!
#!ministrative Co!e. 2$e c$arter !oes not sa' t$at $e s$all
$ol! o((ice at t$e &leas%re o( t$e =resi!ent %nli+e similar
&rovisions a&&earing in ot$er cit' c$arters. 2$e i!ea is to
give t$e ma'or a !e(inite ten%re o( o((ice not !e&en!ent
%&on t$e &leas%re o( t$e =resi!ent. *( t$is ,ere t$e case $e
co%l! be se&arate! (rom t$e service regar!less o( t$e ca%se
or motive. B%t ,$en $e ,as given a !e(inite ten%re t$e
im&lication is t$at $e can onl' be remove! (or ca%se. #n
in(erential a%t$orit' to remove at &leas%re can not be
!e!%ce! since t$e e4istence o( a !e(ine! term i&so (acto
negatives s%c$ an in(erence an! im&lies a contrar'
&res%m&tion i.e. t$at t$e inc%mbent s$all $ol! o((ice to t$e
en! o( $is term s%b9ect to removal (or ca%se.H
G0;b< 2o remove o((icials (rom o((ice con(ormabl' to la, an!
to !eclare vacant t$e o((ices $el! b' s%c$ remove! o((icials.
For !islo'alt' to t$e ;@nite! )tates< t$e -e&%blic o( t$e
=$ili&&ines t$e ;GovernorDGeneral< =resi!ent o( t$e
=$ili&&ines ma' at an' time remove a &erson (rom an'
&osition o( tr%st or a%t$orit' %n!er t$e Government o( t$e
;=$ili&&ine *slan!s< =$ili&&ines. ;c< 2o or!er ,$en in $is
o&inion t$e goo! o( t$e &%blic services re.%ires an
/88
investigation o( an' action or t$e con!%ct o( an' &erson in
t$e Government service an! in connection t$ere,it$ to
!esignate t$e o((icial committee or &erson b' ,$om s%c$
investigation s$all be con!%cte!.
)3C. 15. ;1< 2$e =resi!ent s$all $ave control o( an t$e
e4ec%tive !e&artments b%rea%s or o((ices e4ercise general
s%&ervision over all local governments as ma' be &rovi!e!
b' la, an! ta+e care t$at t$e la,s be (ait$(%ll' e4ec%te!.
*t ma' clearl' be in(erre! (rom t$e above t$at t$e =resi!ent
ma' remove an' o((icial in t$e government service
"con(ormabl' to la," an! to !eclare vacant t$e o((ice $el!
b' t$e remove! o((icial. #n! to t$is en! t$e =resi!ent ma'
or!er "an investigation o( an' action or t$e con!%ct o( an'
&erson in t$e Government service an! in connection
t$ere,it$ to !esignate t$e o((icial committee or &erson b'
,$om s%c$ investigation s$all be con!%cte!." Note t$at t$e
&rovision re(ers to an' o((icial in t$e government service
,$ic$ m%st necessaril' incl%!e t$e ma'or o( a c$artere!
cit'. *t cannot t$ere(ore be !is&%te! t$at in t$e &artic%lar
case %n!er consi!eration t$e =resi!ent is veste! ,it$ t$e
a%t$orit' to or!er t$e investigation o( &etitioner ,$en in $is
o&inion t$e goo! o( t$e &%blic service so re.%ires an! s%c$
being t$e case &etitioner cannot no, conten! t$at t$e
!esignation o( res&on!ent as t$e o((icial to investigate $im
in connection ,it$ t$e c$arges lo!ge! against $im b'
-osales $as been !one ,it$o%t t$e a%t$orit' o( la,. 2$is o(
co%rse is %&on t$e &remise t$at t$e c$arges involve! in t$e
investigation re(er to t$ose (or ,$ic$ &etitioner ma' be
s%s&en!e! or remove! %n!er t$e la, a .%estion ,$ic$ ,e
,ill ta+e %& later in t$is !ecision.
Mon!ano v. )ilvosa on )%&ervision v. Control. From
!istinction it cannot be reasonabl' in(erre! t$at t$e &o,er
o( s%&ervision o( t$e =resi!ent over local government
o((icials !oes not incl%!e t$e &o,er o( investigation ,$en in
$is o&inion t$e goo! o( t$e &%blic service so re.%ires as
&ost%late! in )ection G0;c< o( t$e -evise! #!ministrative
Co!e.
Hebron v. -e'es: t$e &roce!%re &rescribe! in sections /188
to /181 o( t$e -evise! #!ministrative Co!e (or t$e
s%s&ension an! removal o( m%nici&al o((icials t$erein
re(erre! to is man!ator'A t$at in t$e absence o( a clear an!
e4&licit &rovision to t$e contrar' relative &artic%larl' to
m%nici&al cor&orations S an! none $as been cite! to %s S
sai! &roce!%re is e4cl%siveA t$at t$e e4ec%tive !e&artment
o( t$e national government in t$e e4ercise o( its general
s%&ervision over local government ma' con!%ct
investigations ,it$ a vie, to !etermining ,$et$er m%nici&al
o((icials are g%ilt' o( acts or omissions ,arranting t$e
a!ministrative action re(erre! to in sai! sections as a
means onl' to ascertain ,$et$er t$e &rovincial governor
an! t$e &rovincial boar! s$o%l! ta+e s%c$ actionA t$at t$e
34ec%tive ma' ta+e a&&ro&riate meas%res to com&el t$e
&rovincial governor an! t$e &rovincial boar! to ta+e sai!
action i( t$e same is ,arrante! an! t$e' (aile! to !o soA
t$at t$e &rovincial governor an! t$e &rovincial boar! ma'
not be !e&rive! b' t$e 34ec%tive o( t$e &o,er to e4ercise
t$e a%t$orit' con(erre! %&on t$em in sections /188 to /185
o( t$e -evise! #!ministrative Co!eA t$at s%c$ ,o%l! be t$e
e((ect o( t$e ass%m&tion t$ose &o,ers b' t$e 34ec%tiveA
t$at sai! ass%m&tion o( &o,ers ,o%l! (%rt$er violate section
/181 o( t$e same Co!e (or t$e a%t$orit' t$erein veste! in
t$e 34ec%tive is merel' a&&ellate in c$aracterA t$at sai!
ass%m&tion o( &o,ers in t$e case at bar even e4cee!e!
t$ose o( t$e =rovincial Governor an! =rovincial Boar! in
,$om original 9%ris!iction is veste! b' sai! sections /188 to
/185 (or &%rs%ant t$ereto "t$e &reventive s%s&ension o( a
m%nici&al o((icer s$all not be (or more t$an t$irt' ;15< !a's"
at t$e e4&iration o( ,$ic$ $e s$all be reinstate! %nless t$e
!ela' in t$e !ecision o( t$e case is !%e to $is (a%lt neglect
or re.%est or %nless $e s$all $ave mean,$ile been
convicte! ,$ereas &etitioner $erein ,as s%s&en!e! "%ntil
t$e (inal !etermination o( t$e &rocee!ings" against $im
regar!less o( t$e o( t$e !%ration t$ereo( an! t$e ca%se o(
t$e !ela' in its !is&osition an! t$at so m%c$ o( t$e r%le lai!
!o,n in Killena vs. )ecretar' o( t$e *nterior an! Killena vs.
-o.%e as ma' be inconsistent ,it$ t$e (oregoing vie,s
s$o%l! be !eeme! an! are $ereb' reverse! or mo!i(ie!
accor!ingl'.
/. For ,$at ca%se or ca%ses ma' t$e =resi!ent or!er t$e
investigation o( &etitioner "con(ormabl' to la,T
Lacson vs. -o.%e: Consi!ering t$at t$e &osition o( ma'or o(
a c$artere! cit' ma' be (airl' com&are! in categor' an!
stat%re ,it$ t$at o( a &rovincial governor ,e are o( t$e
o&inion t$at t$e (ormer b' analog' ma' also be amenable
/88
to removal an! s%s&ension (or t$e same ca%ses as t$e
latter ,$ic$ ca%ses %n!er )ection /578 o( t$e -evise!
#!ministrative Co!e are: !islo'alt' !is$onest' o&&ression
an! miscon!%ct in o((ice. #n! consi!ering t$e allegations in
t$e com&laint to t$e e((ect t$at &etitioner too+ a!vantage o(
$is &%blic &osition as ma'or o( *loilo Cit' in committing t$e
acts o( violence an! intimi!ation %&on res&on!ent in or!er
to sto& t$e ra!io &rogram $e ,as t$en con!%cting in $is
station t$%s s%&&ressing an! c%rtailing $is rig$t to (ree
s&eec$ ,e are o( t$e o&inion t$at sai! acts constit%te
miscon!%ct in o((ice (or ,$ic$ $e ma' be or!ere!
investigate! b' t$e =resi!ent ,it$in t$e meaning o( t$e la,.
2$ere is t$ere(ore no &la%sible reason to !ist%rb t$e
!ecision ren!ere! b' t$e lo,er co%rt ,$ic$ ,e (in! to be in
accor!ance ,it$ la,.
Ganzon v. CA /supra- see p. 6C41
'aule v. (antos
Facts: On 7%ne 181888 t$e Fe!eration o( #ssociations o( Baranga'
Co%ncils ;F#BC< o( Catan!%anes com&ose! o( eleven ;11<
members in t$eir ca&acities as =resi!ents o( t$e #ssociation o(
Baranga' Co%ncils in t$eir res&ective m%nici&alities convene! in
Kirac Catan!%anes ,it$ si4 members in atten!ance (or t$e
&%r&ose o( $ol!ing t$e election o( its o((icers. =resent ,ere
&etitioner -%&erto 2a%le o( )an Mig%el #llan #.%ino o( Kiga
Kicente #vila o( Kirac Fi!el 7acob o( =anganiban Leo )ales o(
Caramoran an! Man%el 2orres o( Baras. 2$e Boar! o( 3lection
)%&ervisors?Cons%ltants ,as com&ose! o( =rovincial Government
O&eration O((icer ;=GOO< #lberto =. Molina 7r. as C$airman ,it$
=rovincial 2reas%rer L%is #. Manla&aB 7r. an! =rovincial 3lection
)%&ervisor #rnol! )o.%erata as members. 6$en t$e gro%& !eci!e!
to $ol! t$e election !es&ite t$e absence o( (ive ;C< o( its members
t$e =rovincial 2reas%rer an! t$e =rovincial 3lection )%&ervisor
,al+e! o%t. 2$e election nevert$eless &rocee!e!. On 7%ne 18
1888 res&on!ent Lean!ro *. Kerceles Governor o( Catan!%anes
sent a letter to res&on!ent L%is 2. )antos t$e )ecretar' o( Local
Government &rotesting t$e election o( t$e o((icers o( t$e F#BC an!
see+ing its n%lli(ication in vie, o( several (lagrant irreg%larities in
t$e manner it ,as con!%cte!. *n com&liance ,it$ t$e or!er o(
res&on!ent )ecretar' &etitioner -%&erto 2a%le as =resi!ent o( t$e
F#BC (ile! $is comment on t$e letterD&rotest o( res&on!ent
Governor !en'ing t$e allege! irreg%larities an! !eno%ncing sai!
res&on!ent Governor (or me!!ling or intervening in t$e election o(
F#BC o((icers ,$ic$ is a &%rel' nonD&artisan a((air an! at t$e same
time re.%esting (or $is a&&ointment as a member o( t$e
)angg%niang =anlala,igan o( t$e &rovince being t$e !%l' electe!
=resi!ent o( t$e F#BC in Catan!%anes. On #%g%st 0 1888
res&on!ent )ecretar' iss%e! a resol%tion n%lli('ing t$e election o(
t$e o((icers o( t$e F#BC in Catan!%anes $el! on 7%ne 18 1888 an!
or!ering a ne, one to be con!%cte! as earl' as &ossible to be
&resi!e! b' t$e -egional Director o( -egion K o( t$e De&artment o(
Local Government. =etitioner (ile! a motion (or reconsi!eration o(
t$e resol%tion o( #%g%st 0 1888 b%t it ,as !enie! b' res&on!ent
)ecretar' in $is resol%tion o( )e&tember C 1888. *n t$e &etition (or
certiorari be(ore @s &etitioner see+s t$e reversal o( t$e resol%tions
o( res&on!ent )ecretar' !ate! #%g%st 0 1888 an! )e&tember C
1888 (or being n%ll an! voi!.
*ss%es: 1. 6ON t$e )ecretar' $as 9%ris!iction to entertain an
election &rotest involving t$e election o( t$e o((icers o( t$e
Fe!eration o( #ssociation o( Baranga' Co%ncils.
*t is a ,ellDsettle! &rinci&le o( a!ministrative la, t$at %nless
e4&ressl' em&o,ere! a!ministrative agencies are bere(t o(
.%asiD 9%!icial &o,ers. 18 2$e 9%ris!iction o( a!ministrative
a%t$orities is !e&en!ent entirel' %&on t$e &rovisions o( t$e
stat%tes re&osing &o,er in t$emA t$e' cannot con(er it %&on
t$emselves. )%c$ 9%ris!iction is essential to give vali!it' to
t$eir !eterminations. 2$ere is neit$er a stat%tor' nor
constit%tional &rovision e4&ressl' or even b' necessar'
im&lication con(erring %&on t$e )ecretar' o( Local
Government t$e &o,er to ass%me 9%ris!iction over an
election &rotect involving o((icers o( t$e +ati&%nan ng mga
baranga'. #n %n!erstan!ing o( t$e e4tent o( a%t$orit' o( t$e
)ecretar' over local governments is t$ere(ore necessar' i(
6e are to resolve t$e iss%e at $an!.
=resi!ential &o,er over local governments is limite! b' t$e
Constit%tion to t$e e4ercise o( general s%&ervision "to
ens%re t$at local a((airs are a!ministere! accor!ing to la,."
2$e general s%&ervision is e4ercise! b' t$e =resi!ent
t$ro%g$ t$e )ecretar' o( Local Government.
*n a!ministrative la, s%&ervision means overseeing or t$e
&o,er or a%t$orit' o( an o((icer to see t$at t$e s%bor!inate
/85
o((icers &er(orm t$eir !%ties. *( t$e latter (ails or neglects to
(%l(ill t$em t$e (ormer ma' ta+e s%c$ action or ste& as
&rescribe! b' la, to ma+e t$em &er(orm t$eir !%ties.
Control on t$e ot$er $an! means t$e &o,er o( an o((icer to
alter or mo!i(' or n%lli(' or set asi!e ,$at a s%bor!inate
o((icer $a! !one in t$e &er(ormance o( $is !%ties an! to
s%bstit%te t$e 9%!gment o( t$e (ormer (or t$at o( t$e latter.
2$e (%n!amental la, &ermits t$e C$ie( 34ec%tive to ,iel!
no more a%t$orit' t$an t$at o( c$ec+ing ,$et$er sai! local
government or t$e o((icers t$ereo( &er(orm t$eir !%ties as
&rovi!e! b' stat%tor' enactments. Hence t$e =resi!ent
cannot inter(ere ,it$ local governments so long as t$e same
or its o((icers act ,it$in t$e sco&e o( t$eir a%t$orit'.
)%&ervisor' &o,er ,$en contraste! ,it$ control is t$e
&o,er o( mere oversig$t over an in(erior bo!'A it !oes not
incl%!e an' restraining a%t$orit' over s%c$ bo!'.
Constr%ing t$e constit%tional limitation on t$e &o,er o(
general s%&ervision o( t$e =resi!ent over local governments
6e $ol! t$at res&on!ent )ecretar' $as no a%t$orit' to &ass
%&on t$e vali!it' or reg%larit' o( t$e election o( t$e o((icers
o( t$e +ati&%nan. 2o allo, res&on!ent )ecretar' to !o so ,ill
give $im more &o,er t$an t$e la, or t$e Constit%tion
grants. *t ,ill in e((ect give $im control over local
government o((icials (or it ,ill &ermit $im to inter(ere in a
&%rel' !emocratic an! nonD&artisan activit' aime! at
strengt$ening t$e baranga' as t$e basic com&onent o( local
governments so t$at t$e %ltimate goal o( (%llest a%tonom'
ma' be ac$ieve!. *n (act $is or!er t$at t$e ne, elections to
be con!%cte! be &resi!e! b' t$e -egional Director is a clear
an! !irect inter(erence b' t$e De&artment ,it$ t$e &olitical
a((airs o( t$e baranga's ,$ic$ is not &ermitte! b' t$e
limitation o( &resi!ential &o,er to general s%&ervision over
local governments.
*n!ee! it is t$e &olic' o( t$e state to ens%re t$e a%tonom'
o( local governments. 2$is state &olic' is ec$oe! in t$e
Local Government Co!e ,$erein it is !eclare! t$at "t$e
)tate s$all g%arantee an! &romote t$e a%tonom' o( local
government %nits to ens%re t$eir (%llest !evelo&ment as
sel(Dreliant comm%nities an! ma+e t$em more e((ective
&artners in t$e &%rs%it o( national !evelo&ment an! social
&rogress." 2o !en' t$e )ecretar' o( Local Government t$e
&o,er to revie, t$e reg%larit' o( t$e elections o( o((icers o(
t$e +ati&%nan ,o%l! be to en$ance t$e avo,e! state &olic'
o( &romoting t$e a%tonom' o( local governments.
Moreover alt$o%g$ t$e De&artment is given t$e &o,er to
&rescribe r%les reg%lations an! ot$er iss%ances t$e
#!ministrative Co!e limits its a%t$orit' to merel'
"monitoring com&liance" b' local government %nits o( s%c$
iss%ances. 2o monitor means "to ,atc$ observe or c$ec+.
2$is is com&atible ,it$ t$e &o,er o( s%&ervision o( t$e
)ecretar' over local governments ,$ic$ as earlier !isc%sse!
is limite! to c$ec+ing ,$et$er t$e local government %nit
concerne! or t$e o((icers t$ereo( &er(orm t$eir !%ties as
&rovi!e! b' stat%tor' enactments. 3ven t$e Local
Government Co!e ,$ic$ grants t$e )ecretar' &o,er to
iss%e im&lementing circ%lars r%les an! reg%lations is silent
as to $o, t$ese iss%ances s$o%l! be en(orce!. )ince t$e
res&on!ent )ecretar' e4ercises onl' s%&ervision an! not
control over local governments it is tr%l' !o%bt(%l i( $e
co%l! en(orce com&liance ,it$ t$e DLG Circ%lar. #n' !o%bt
t$ere(ore as to t$e &o,er o( t$e )ecretar' to inter(ere ,it$
local a((airs s$o%l! be resolve! in (avor o( t$e greater
a%tonom' o( t$e local government.
2$%s t$e Co%rt $ol!s t$at in ass%ming 9%ris!iction over t$e
election &rotest (ile! b' res&on!ent Governor an! !eclaring
t$e election o( t$e o((icers o( t$e F#BC on 7%ne 18 1888 as
n%ll an! voi! t$e res&on!ent )ecretar' acte! in e4cess o(
$is 9%ris!iction. 2$e res&on!ent )ecretar' not $aving t$e
9%ris!iction to $ear an election &rotest involving o((icers o(
t$e F#BC t$e reco%rse o( t$e &arties is to t$e or!inar'
co%rts. 2$e -egional 2rial Co%rts $ave t$e e4cl%sive original
9%ris!iction to $ear t$e &rotest. 11
2$e &rovision in DLG Circ%lar No. 88D1C amen!ing DLG
Circ%lar No. 88D58 ,$ic$ states t$at ",$enever t$e
g%i!elines are not s%bstantiall' com&lie! ,it$ t$e election
s$all be !eclare! n%ll an! voi! b' t$e De&artment o( Local
Government an! an election s$all con!%ct an! being
invo+e! b' t$e )olicitor General cannot be a&&lie!. DLG
Circ%lar No. 88D1C ,as iss%e! on 7%l' 1 1888 a(ter t$e 7%ne
18 1888 elections o( t$e F#BC o((icers an! it is t$e r%le in
stat%tor' constr%ction t$at la,s incl%!ing circ%lars an!
reg%lations 10 cannot be a&&lie! retros&ectivel'. Moreover
s%c$ &rovision is n%ll an! voi! (or $aving been iss%e! in
e4cess o( t$e res&on!ent )ecretar'Hs 9%ris!iction inasm%c$
/81
as an a!ministrative a%t$orit' cannot con(er 9%ris!iction
%&on itsel(.
/. 6ON t$e Governor $as t$e legal &ersonalit' to (ile an
election &rotest
2$e Co%rt (in!s t$at res&on!ent Governor $as t$e
&ersonalit' to (ile t$e &rotest. @n!er )ection /5C o( t$e
Local Government Co!e t$e members$i& o( t$e
sangg%niang &anlala,igan consists o( t$e governor t$e
viceDgovernor elective members o( t$e sai! sangg%nian an!
t$e &resi!ents o( t$e +ati&%nang &anlala,igan an! t$e
+abataang baranga' &rovincial (e!eration. 2$e governor
acts as t$e &resi!ing o((icer o( t$e sangg%niang
&anlala,igan. #s &resi!ing o((icer o( t$e sagg%niang
&anlala,igan t$e res&on!ent governor $as an interest in
t$e election o( t$e o((icers o( t$e F#BC since its electe!
&resi!ent becomes a member o( t$e assembl'. *( t$e
&resi!ent o( t$e F#BC ass%mes $is &resi!enc' %n!er
.%estionable circ%mstances an! is allo,e! to sit in t$e
sangg%niang &anlala,igan t$e o((icial actions o( t$e
sangg%nian ma' be v%lnerable to attac+s as to t$eir vali!it'
or legalit'. Hence res&on!ent governor is a &ro&er &art' to
.%estion t$e reg%larit' o( t$e elections o( t$e o((icers o( t$e
F#BC.
/. #ss%ming t$at t$e res&on!ent )ecretar' $as 9%ris!iction
over t$e election &rotest 6ON $e committe! grave ab%se
o( !iscretion amo%nting to lac+ o( 9%ris!iction in n%lli('ing
t$e election
#s to t$e t$ir! iss%e raise! b' &etitioner t$e Co%rt $as
alrea!' r%le! t$at t$e res&on!ent )ecretar' $as no
9%ris!iction to $ear t$e &rotest an! n%lli(' t$e elections.
Nevert$eless t$e Co%rt $ol!s t$at t$e iss%e o( t$e vali!it' o(
t$e elections s$o%l! no, be resolve! in or!er to &revent an'
%nnecessar' !ela' t$at ma' res%lt (rom t$e commencement
o( an a&&ro&riate action b' t$e &arties.
2$e elections ,ere !eclare! n%ll an! voi! &rimaril' (or
(ail%re to com&l' ,it$ )ection /.0 o( DLG Circ%lar No. 88D58
,$ic$ &rovi!es t$at "t$e inc%mbent F#BC =resi!ent or t$e
KiceD=resi!ent s$all &resi!e over t$e reorganiBational
meeting t$ere being a .%or%m." 2$e r%le s&eci(icall'
&rovi!es t$at it is t$e inc%mbent F#BC =resi!ent or KiceD
=resi!ent ,$o s$all &resi!e over t$e meeting. 2$e ,or!
"s$all" s$o%l! be ta+en in its or!inar' signi(ication i.e. it
m%st be im&erative or man!ator' an! not merel'
&ermissive 17 as t$e r%le is e4&licit an! re.%ires no ot$er
inter&retation. *( it $a! been inten!e! t$at an' ot$er o((icial
s$o%l! &resi!e t$e r%les ,o%l! $ave &rovi!e! so as it !i! in
t$e elections at t$e to,n an! cit' levels 18 as ,ell as t$e
regional level.. 18
*t is a!mitte! t$at neit$er t$e inc%mbent F#BC =resi!ent nor
t$e KiceD=resi!ent &resi!e! over t$e meeting an! elections
b%t #lberto =. Molina 7r. t$e C$airman o( t$e Boar! o(
3lection )%&ervisors?Cons%ltants. 2$%s t$ere ,as a clear
violation o( t$e a(oresai! man!ator' &rovision. On t$is
gro%n! t$e elections s$o%l! be n%lli(ie!.
@n!er )ec. /.1./.7 o( t$e same circ%lar it is &rovi!e! t$at a
Boar! o( 3lection )%&ervisors?Cons%ltants s$all be
constit%te! to oversee an!?or ,itness t$e canvassing o(
votes an! &roclamation o( ,inners. 2$e r%les con(ine t$e
role o( t$e Boar! o( 3lection )%&ervisors?Cons%ltants to
merel' overseeing an! ,itnessing t$e con!%ct o( elections.
2$is is consistent ,it$ t$e &rovision in t$e Local Government
Co!e limiting t$e a%t$orit' o( t$e COM3L3C to t$e
s%&ervision o( t$e election.
*n case at bar =GOO Molina t$e C$airman o( t$e Boar!
&resi!e! over t$e elections. 2$ere ,as !irect &artici&ation
b' t$e C$airman o( t$e Boar! in t$e elections contrar' to
,$at is !ictate! b' t$e r%les. 6orse t$ere ,as no Boar! o(
3lection )%&ervisors to oversee t$e elections in vie, o( t$e
,al+ o%t stage! b' its t,o ot$er members t$e =rovincial
COM3L3C )%&ervisor an! t$e =rovincial 2reas%rer. 2$e
ob9ective o( +ee&ing t$e election (ree an! $onest ,as
t$ere(ore com&romise!.
2$e Co%rt t$ere(ore (in!s t$at t$e election o( o((icers o( t$e
F#BC $el! on 7%ne 18 1888 is n%ll an! voi! (or (ail%re to
com&l' ,it$ t$e &rovisions o( DLG Circ%lar No. 88D58.
Mean,$ile &en!ing resol%tion o( t$is &etition &etitioner
(ile! a s%&&lemental &etition alleging t$at &%blic res&on!ent
Local Government )ecretar' in $is memoran!%m !ate!
7%ne 7 1885 !esignate! #%g%sto #ntonio as tem&orar'
re&resentative o( t$e Fe!eration to t$e sangg%niang
&anlala,igan o( Catan!%anes. B' virt%e o( t$is
memoran!%m res&on!ent governor s,ore into sai! o((ice
#%g%sto #ntonio on 7%ne 10 1885.
/8/
2$e )olicitor General (ile! $is comment on t$e s%&&lemental
&etition 01 as re.%ire! b' t$e resol%tion o( t$e Co%rt !ate!
)e&tember 111885. *n $is comment t$e )olicitor General
!ismisse! t$e s%&ervening event allege! b' &etitioner as
somet$ing immaterial to t$e &etition. He arg%es t$at
#ntonioHs a&&ointment ,as merel' tem&orar' "%ntil s%c$
time t$at t$e &rovincial F#BC &resi!ent in t$at &rovince $as
been electe! a&&ointe! an! .%ali(ie!." 00 He stresses t$at
#ntonioHs a&&ointment ,as onl' a reme!ial meas%re
!esigne! to co&e ,it$ t$e &roblems bro%g$t abo%t b' t$e
absence o( a re&resentative o( t$e F#BC to t$e "sangg%nian
ang &anlala,igan."
)ec. /5C ;/< o( t$e Local Government Co!e ;B.=. Blg. 117<
&rovi!esD ;/< 2$e sangg%niang &anlala,igan s$all be
com&ose! o( t$e governor t$e viceDgovernor elective
members o( t$e sai! sangg%nian an! t$e &resi!ents o( t$e
+ati&%nang &anlala,igan an! t$e +abataang baranga'
&rovincial (e!eration ,$o s$all be a&&ointe! b' t$e
=resi!ent o( t$e =$ili&&ines.
Batas =ambansa Blg. C1 %n!er )ec. / li+e,ise states: 2$e
sangg%niang &anlala,igan o( eac$ &rovince s$all be
com&ose! o( t$e governor as c$airman an! &resi!ing
o((icer t$e viceDgovernor as &resi!ing o((icer &ro tem&ore
t$e elective sangg%niang &anlala,igan members an! t$e
a&&ointive members consisting o( t$e &resi!ent o( t$e
&rovincial association o( baranga' co%ncils an! t$e
&resi!ent o( t$e &rovincial (e!eration o( t$e +abataang
baranga'.
*n *gnacio vs. Banate 7r. 0C t$e Co%rt inter&reting similarl'
,or!e! &rovisions o( Batas =ambansa Blg. 117 an! Batas
=ambansa Blg. C1 on t$e com&osition o( t$e sangg%niang
&anl%ngso! 0G !eclare! as n%ll an! voi! t$e a&&ointment
o( &rivate res&on!ent Leoncio Banate 7r. as member o( t$e
)angg%niang =anl%ngso! o( t$e Cit' o( -o4as re&resenting
t$e +ati&%nang &anl%ngso! ng mga baranga' (or $e lac+e!
t$e elegibilit' an! .%ali(ication re.%ire! b' la, not being a
baranga' ca&tain an! (or not $aving been electe! &resi!ent
o( t$e association o( baranga' co%ncils. 2$e Co%rt $el! t$at
an %n.%ali(ie! &erson cannot be a&&ointe! a member o( t$e
sangg%nian even in an acting ca&acit'. *n -e'es vs. Ferrer
07 t$e a&&ointment o( Nemesio L. -asgo 7r. as
re&resentative o( t$e 'o%t$ sector to t$e sangg%niang
&anl%ngso! o( Davao Cit' ,as !eclare! invali! since $e ,as
never t$e &resi!ent o( t$e +abataang baranga' cit'
(e!eration as re.%ire! b' )ec. 171 Batas =ambansa Blg.
117.
*n t$e &resent controvers' involving t$e sangg%niang
&anlala,igan t$e la, is li+e,ise e4&licit. 2o be a&&ointe!
b' t$e =resi!ent o( t$e =$ili&&ines to sit in t$e sangg%niang
&anlala,igan is t$e &resi!ent o( t$e +ati&%nang
&anlala,igan. 2$e a&&ointee m%st meet t$e .%ali(ications
set b' la,. 08 2$e a&&ointing &o,er is bo%n! b' la, to
com&l' ,it$ t$e re.%irements as to t$e basic .%ali(ications
o( t$e a&&ointee to t$e sangg%niang &anlala,igan. 2$e
=resi!ent o( t$e =$ili&&ines or $is alter ego t$e )ecretar' o(
Local Government $as no a%t$orit' to a&&oint an'one ,$o
!oes not meet t$e minim%m .%ali(ication to be t$e
&resi!ent o( t$e (e!eration o( baranga' co%ncils.
#%g%sto #ntonio is not t$e &resi!ent o( t$e (e!eration. He is
a member o( t$e (e!eration b%t $e ,as not even &resent
!%ring t$e elections !es&ite notice. 2$e arg%ment t$at
#ntonio ,as a&&ointe! as a reme!ial meas%re in t$e
e4igenc' o( t$e service cannot be s%staine!. )ince #ntonio
!oes not meet t$e basic .%ali(ication o( being &resi!ent o(
t$e (e!eration $is a&&ointment to t$e sangg%niang
&anlala,igan is not 9%sti(ie! not,it$stan!ing t$at s%c$
a&&ointment is merel' in a tem&orar' ca&acit'. *( t$e
intention o( t$e res&on!ent )ecretar' ,as to &rotect t$e
interest o( t$e (e!eration in t$e sangg%nian $e s$o%l! $ave
a&&ointe! t$e inc%mbent F#BC =resi!ent in a $ol!Dover
ca&acit'. For even %n!er t$e g%i!elines t$e term o( o((ice o(
o((icers o( t$e +ati&%nan at all levels s$all be (rom t$e !ate
o( t$eir election %ntil t$eir s%ccessors s$all $ave been !%l'
electe! an! .%ali(ie! ,it$o%t &re9%!ice to t$e terms o( t$eir
a&&ointments as members o( t$e sangg%nian to ,$ic$ t$e'
ma' be corres&on!ingl' a&&ointe!. )ince t$e election is still
%n!er &rotest s%c$ t$at no s%ccessor o( t$e inc%mbent $as
as 'et .%ali(ie! t$e res&on!ent )ecretar' $as no c$oice b%t
to $ave t$e inc%mbent F#BC =resi!ent sit as member o( t$e
sangg%nian. He co%l! even $ave a&&ointe! &etitioner since
$e ,as electe! t$e &resi!ent o( t$e (e!eration b%t not
#ntonio. 2$e a&&ointment o( #ntonio allege!l' t$e &rotege
o( res&on!ent Governor gives cre!ence to &etitionerHs
c$arge o( &olitical inter(erence b' res&on!ent Governor in
/81
t$e organiBation. 2$is s$o%l! not be allo,e!. 2$e baranga's
s$o%l! be ins%late! (rom an' &artisan activit' or &olitical
intervention i( onl' to give tr%e meaning to local a%tonom'.
Carpio v. %xecutive (ecretar#
Facts: -e&%blic #ct No. G87C entitle! "#N #C2 3)2#BL*)H*NG 2H3
=H*L*==*N3 N#2*ON#L =OL*C3 @ND3- # -3O-G#N*Z3D
D3=#-2M3N2 OF 2H3 *N23-*O- #ND LOC#L GOK3-NM3N2 #ND
FO- O2H3- =@-=O)3)" ,as enacte!. Car&io assails sai! -#>s
constit%tionalit'. B%t in an en banc resol%tion !ate! December /7
1885 t$ )C sim&l' re.%ire! t$e &%blic res&on!ents to (ile t$eir
Comment ,it$o%t $o,ever giving !%e co%rse to t$e &etition an!
t$e &ra'er t$erein. Hence t$e #ct too+ e((ect a(ter (i(teen !a's
(ollo,ing its &%blication or on 7an%ar' 1 1881.
*ss%e: 6ON -# G87C emasc%late! t$e National =olice Commission
b' limiting its &o,er "to a!ministrative control" over t$e =$ili&&ine
National =olice ;=N=< t$%s "control" remaine! ,it$ t$e De&artment
)ecretar' %n!er ,$om bot$ t$e National =olice Commission an!
t$e =N= ,ere &lace!. NO.
t$e =resi!ent $as control o( all e4ec%tive !e&artments
b%rea%s an! o((ices to la' at rest &etitionerHs contention on
t$e matter. 2$is &resi!ential &o,er o( control over t$e
e4ec%tive branc$ o( government e4ten!s over all e4ec%tive
o((icers (rom Cabinet )ecretar' to t$e lo,liest cler+ 17 an!
$as been $el! b' %s in t$e lan!mar+ case o( Mon!ano vs.
)ilvosa 18 to mean "t$e &o,er o( Ut$e =resi!entV to alter or
mo!i(' or n%lli(' or set asi!e ,$at a s%bor!inate o((icer $a!
!one in t$e &er(ormance o( $is !%ties an! to s%bstit%te t$e
9%!gment o( t$e (ormer ,it$ t$at o( t$e latter." *t is sai! to
be at t$e ver' "$eart o( t$e meaning o( C$ie( 34ec%tive."
3.%all' ,ell acce&te! as a corollar' r%le to t$e control
&o,ers o( t$e =resi!ent is t$e "Doctrine o( W%ali(ie! =olitical
#genc'". #s t$e =resi!ent cannot be e4&ecte! to e4ercise
$is control &o,ers all at t$e same time an! in &erson $e ,ill
$ave to !elegate some o( t$em to $is Cabinet members.
@n!er t$is !octrine ,$ic$ recogniBes t$e establis$ment o( a
single e4ec%tive "all e4ec%tive an! a!ministrative
organiBations are a!9%ncts o( t$e 34ec%tive De&artment t$e
$ea!s o( t$e vario%s e4ec%tive !e&artments are assistants
an! agents o( t$e C$ie( 34ec%tive an! e4ce&t in cases
,$ere t$e C$ie( 34ec%tive is re.%ire! b' t$e Constit%tion or
la, to act in &erson on t$e e4igencies o( t$e sit%ation
!eman! t$at $e act &ersonall' t$e m%lti(ario%s e4ec%tive
an! a!ministrative (%nctions o( t$e C$ie( 34ec%tive are
&er(orme! b' an! t$ro%g$ t$e e4ec%tive !e&artments an!
t$e acts o( t$e )ecretaries o( s%c$ !e&artments &er(orme!
an! &rom%lgate! in t$e reg%lar co%rse o( b%siness %nless
!isa&&rove! or re&robate! b' t$e C$ie( 34ec%tive
&res%m&tivel' t$e acts o( t$e C$ie( 34ec%tive." 2$%s an! in
s$ort "t$e =resi!entHs &o,er o( control is !irectl' e4ercise!
b' $im over t$e members o( t$e Cabinet ,$o in t%rn an!
b' $is a%t$orit' control t$e b%rea%s an! ot$er o((ices %n!er
t$eir res&ective 9%ris!ictions in t$e e4ec%tive !e&artment."
#!!itionall' t$e circ%mstance t$at t$e N#=OLCOM an! t$e
=N= are &lace! %n!er t$e reorganiBe! De&artment o(
*nterior an! Local Government is merel' an a!ministrative
realignment t$at ,o%l! bolster a s'stem o( coor!ination an!
coo&eration among t$e citiBenr' local e4ec%tives an! t$e
integrate! la, en(orcement agencies an! &%blic sa(et'
agencies create! %n!er t$e assaile! #ct /0 t$e (%n!ing o(
t$e =N= being in large &art s%bsi!iBe! b' t$e national
government. )%c$ organiBational setD%& !oes not !etract
(rom t$e man!ate o( t$e Constit%tion t$at t$e national
&olice (orce s$all be a!ministere! an! controlle! b' a
national &olice commission as at an' rate an! in (act t$e
#ct in .%estion a!e.%atel' &rovi!es (or a!ministration an!
control at t$e commission level.
=etitioner (%rt$er asserts t$at in mani(est !erogation o( t$e
&o,er o( control o( t$e N#=OLCOM over t$e =N= -# G87C
veste! t$e &o,er to c$oose t$e =N= =rovincial Director an!
t$e C$ie(s o( =olice in t$e Governors an! Ma'ors
res&ectivel'A t$e &o,er o( "o&erational s%&ervision an!
control" over &olice %nits in cit' an! m%nici&al ma'orsA in
t$e Civil )ervice Commission &artici&ation in a&&ointments
to t$e &ositions o( )enior )%&erinten!ent to De&%t'
DirectorDGeneral as ,ell as t$e a!ministration o( .%ali('ing
entrance e4aminationsA !isci&linar' &o,ers over =N=
members in t$e "=eo&leHs La, 3n(orcement Boar!s" an! in
cit' an! m%nici&al ma'ors.
Once more ,e (in! no real controvers' %&on t$e (oregoing
assertions. *t is tr%e t$at ,$en t$e Constit%tional
Commissioners o( 188G &rovi!e! t$at t$e a%t$orit' o( local
e4ec%tives over t$e &olice %nits in t$eir 9%ris!iction s$all be
/80
&rovi!e! b' la, t$e' inten!e! t$at t$e !a'DtoD!a' (%nctions
o( &olice ,or+ li+e crime investigation crime &revention
activities tra((ic control etc. ,o%l! be %n!er t$e
o&erational control o( t$e local e4ec%tives as it ,o%l! not be
a!visable to give (%ll control o( t$e &olice to t$e local
e4ec%tives. 2$e' reasone! t$at in t$e &ast t$is gave rise to
,arlor!ism bossism an! sanct%aries (or vices an! ab%ses.
*t ,o%l! a&&ear t$en t$at b' vesting in t$e local e4ec%tives
t$e &o,er to c$oose t$e o((icers in .%estion t$e #ct ,ent
be'on! t$e bo%n!s o( t$e Constit%tionHs intent. Not so. 6e
(in! lig$t in t$e &rinci&le o( constit%tional constr%ction t$at
ever' &res%m&tion s$o%l! be in!%lge! in (avor o(
constit%tionalit' an! t$e co%rt in consi!ering t$e vali!it' o(
t$e stat%te in .%estion s$o%l! give it s%c$ reasonable
constr%ction as can be reac$e! to bring it ,it$in t$e
(%n!amental la,.
f6e agree an! so $ol! ,it$ t$e vie, o( t$e )olicitor
General t$at "t$ere is no %s%r&ation o( t$e &o,er o( control
o( t$e N#=OLCOM %n!er )ection C1 beca%se %n!er t$is ver'
same &rovision it is clear t$at t$e local e4ec%tives are onl'
acting as re&resentatives o( t$e N#=OLCOM. . . . #s s%c$
!e&%ties t$e' are ans,erable to t$e N#=OLCOM (or t$eir
actions in t$e e4ercise o( t$eir (%nctions %n!er t$at section.
2$%s %nless co%nterman!e! b' t$e N#=OLCOM t$eir acts
are vali! an! bin!ing as acts o( t$e N#=OLCOM." *t is
signi(icant to note t$at t$e local o((icials as N#=OLCOM
re&resentatives ,ill c$oose t$e o((icers concerne! (rom a
list o( eligibles ;t$ose ,$o meet t$e general .%ali(ications
(or a&&ointment to t$e =N=< to be recommen!e! b' =N=
o((icials. 2$e same $ol!ing is tr%e ,it$ res&ect to t$e
contention on t$e o&erational s%&ervision an! control
e4ercise! b' t$e local o((icials. 2$ose o((icials ,o%l! sim&l'
be acting as re&resentatives o( t$e Commission.
2$e grant o( !isci&linar' &o,ers over =N= members to t$e
"=eo&leHs La, 3n(orcement Boar!s" ;or t$e =L3B< an! cit'
an! m%nici&al ma'ors is also not in !erogation o( t$e
commissionHs &o,er o( control over t$e =N=. =%rs%ant to t$e
#ct t$e Commission e4ercises a&&ellate 9%ris!iction t$r%
t$e regional a&&ellate boar!s over !ecisions o( bot$ t$e
=L3B an! t$e sai! ma'ors. 2$is is so %n!er )ection /5;c<.
F%rt$ermore it is t$e Commission ,$ic$ s$all iss%e t$e
im&lementing g%i!elines an! &roce!%res to be a!o&te! b'
t$e =L3B (or in t$e con!%ct o( its $earings an! it ma'
assign N#=OLCOM $earing o((icers to act as legal
cons%ltants o( t$e =L3Bs. #s a !isci&linar' boar! &rimaril'
create! to $ear an! !eci!e citiBenHs com&laints against
erring o((icers an! members o( t$e =N= t$e establis$ment
o( =L3Bs in ever' cit' an! m%nici&alit' ,o%l! all t$e more
$el& &ro(essionaliBe t$e &olice (orce.
)ec 1/ gives m%scle to an! en(orces t$e &ro&osition t$at t$e
national &olice (orce !oes not (all %n!er t$e Comman!erDinD
C$ie( &o,ers o( t$e =resi!ent. 2$is is necessaril' so since
t$e &olice (orce not being integrate! ,it$ t$e militar' is
not a &art o( t$e #rme! Forces o( t$e =$ili&&ines. #s a
civilian agenc' o( t$e government it &ro&erl' comes ,it$in
an! is s%b9ect to t$e e4ercise b' t$e =resi!ent o( t$e &o,er
o( e4ec%tive control.
Conse.%entl' )ection 1/ !oes not constit%te ab!ication o(
comman!erDinDc$ie( &o,ers. *t sim&l' &rovi!es (or t$e
transition &erio! or &rocess !%ring ,$ic$ t$e national &olice
,o%l! gra!%all' ass%me t$e civilian (%nction o( sa(eg%ar!ing
t$e internal sec%rit' o( t$e )tate. @n!er t$is instance t$e
=resi!ent to re&eat ab!icates not$ing o( $is ,ar &o,ers. *t
,o%l! bear to $ere state in reiteration o( t$e &re&on!erant
vie, t$at t$e =resi!ent as Comman!erDinDC$ie( is not a
member o( t$e #rme! Forces. He remains a civilian ,$ose
!%ties %n!er t$e Comman!erDinDC$ie( &rovision "re&resent
onl' a &art o( t$e organic !%ties im&ose! %&on $im. #ll $is
ot$er (%nctions are clearl' civil in nat%re." 11 His &osition as
a civilian Comman!erDinDC$ie( is consistent ,it$ an! a
testament to t$e constit%tional &rinci&le t$at "civilian
a%t$orit' is at all times s%&reme over t$e militar'." ;#rticle
** )ection 1 1887 Constit%tion<
Finall' &etitioner s%bmits t$at t$e creation o( a ")&ecial
Oversig$t Committee" %n!er )ection 80 o( t$e #ct
es&eciall' t$e incl%sion t$erein o( some legislators as
members ;namel': t$e res&ective C$airmen o( t$e
Committee on Local Government an! t$e Committee on
National De(ense an! )ec%rit' in t$e )enate an! t$e
res&ective C$airmen o( t$e Committee on =%blic Or!er an!
)ec%rit' an! t$e Committee on National De(ense in t$e
Ho%se o( -e&resentatives< is an "%nconstit%tional
encroac$ment %&on an! a !imin%tion o( t$e =resi!entHs
/8C
&o,er o( control over all e4ec%tive !e&artments b%rea%s
an! o((ices."
B%t t$ere is not t$e least inter(erence ,it$ t$e =resi!entHs
&o,er o( control %n!er )ection 80. 2$e )&ecial Oversig$t
Committee is sim&l' an a! $oc or transitor' bo!'
establis$e! an! tas+e! solel' ,it$ &lanning an! overseeing
t$e imme!iate "trans(er merger an!?or absor&tion" into t$e
De&artment o( t$e *nterior an! Local Governments o( t$e
"involve! agencies." 2$is it ,ill %n!erta+e in accor!ance
,it$ t$e &$ases o( im&lementation alrea!' lai! !o,n in
)ection 8C o( t$e #ct an! once t$is is carrie! o%t its
(%nctions as ,ell as t$e committee itsel( ,o%l! cease
altoget$er. 1/ #s an a! $oc bo!' its creation an! t$e
(%nctions it e4ercises !eci!e!l' !o not constit%te an
encroac$ment an! in !imin%tion o( t$e &o,er o( control
,$ic$ &ro&erl' belongs to t$e =resi!ent. 6$at is more no
e4ec%tive !e&artment b%rea% or o((ice is &lace! %n!er t$e
control or a%t$orit' o( t$e committee.
*rilon v. Lim /supra- see p. EB1
Bito;Onon v. &ernanez
Facts: 7oel BitoDOnon is t$e !%l' electe! Baranga' C$airman o(
Baranga' 2acras Narra =ala,an an! is t$e M%nici&al Liga C$a&ter
=resi!ent (or t$e M%nici&alit' o( Narra =ala,an. 2$e &rivate
res&on!ent 3legio W%e9ano 7r. on t$e ot$er $an! is t$e !%l'
electe! Baranga' C$airman o( Baranga' -iBal Magsa'sa' =ala,an
an! is t$e M%nici&al Liga C$a&ter =resi!ent (or t$e M%nici&alit' o(
Magsa'sa' =ala,an. Bot$ Onon an! W%e9ano ,ere can!i!ates (or
t$e &osition o( 34ec%tive KiceD=resi!ent in t$e #%g%st /1 1887
election (or t$e Liga ng Baranga' =rovincial C$a&ter o( t$e &rovince
o( =ala,an. Onon ,as &roclaime! t$e ,inning can!i!ate in t$e sai!
election &rom&ting W%e9ano to (ile a &ost &roclamation &rotest ,it$
t$e Boar! o( 3lection )%&ervisors ;B3)< ,$ic$ ,as !eci!e! against
$im on #%g%st /C 1887. Not satis(ie! ,it$ t$e !ecision o( t$e B3)
W%e9ano (ile! a =etition (or -evie, o( t$e !ecision o( t$e B3) ,it$
t$e -egional 2rial Co%rt o( =ala,an an! =%erto =rincesa Cit' ;-2C<.
On #&ril /G 1888 Onon (ile! a motion to !ismiss t$e =etition (or
-evie, raising t$e iss%e o( 9%ris!iction. Onon claime! t$at t$e -2C
$a! no 9%ris!iction to revie, t$e !ecisions ren!ere! b' t$e B3) in
an' &ost &roclamation electoral &rotest in connection ,it$ t$e 1887
Liga ng mga Baranga' election o( o((icers an! !irectors. *n $is
motion to !ismiss Onon claime! t$at t$e )%&&lemental G%i!elines
(or t$e 1887 Liga ng mga Baranga' election iss%e! b' t$e D*LG on
#%g%st 11 1887 in its Memoran!%m Circ%lar No. 87D181 &rovi!ing
(or revie, o( !ecisions or resol%tions o( t$e B3) b' t$e reg%lar
co%rts o( la, is an %ltra vires act an! is voi! (or being iss%e!
,it$o%t or in e4cess o( 9%ris!iction as its iss%ance is not a mere act
o( s%&ervision b%t rat$er an e4ercise o( control over t$e LigaHs
internal organiBation.
On 7%ne // 1888 t$e -2C !enie! OnonHs motion to !ismiss. *n its
or!er t$e -2C ratiocinate! t$at t$e )ecretar' o( t$e De&artment o(
*nterior an! Local Government/ is veste! ,it$ t$e &o,er "to
establis$ an! &rescribe r%les reg%lations an! ot$er iss%ances an!
im&lementing la,s on t$e general s%&ervision o( local government
%nits an! t$e &romotion o( local a%tonom' an! monitor com&liance
t$ereo( b' sai! %nits."1 2$e -2C a!!e! t$at D*LG Circ%lar No. 87D
181 ,as iss%e! b' t$e D*LG )ecretar' &%rs%ant to $is r%leDma+ing
&o,er as &rovi!e! (or %n!er )ection 7 C$a&ter ** Boo+ *K o( t$e
#!ministrative Co!e.0 Conse.%entl' t$e -2C r%le! t$at it $a!
9%ris!iction over t$e &etition (or revie, (ile! b' W%e9a!a. Motion (or
reconsi!eration o( t$e a(oresai! Or!er ,as !enie! &rom&ting t$e
&etitioner to (ile t$e &resent &etition.
*ss%e: 6ON t$e .%estione! &rovision in t$e MC ,as iss%e! b' t$e
D*LG secretar' in e4cess o( $is a%t$orit'.
2$e resol%tion o( t$e &resent controvers' re.%ires an
e4amination o( t$e .%estione! &rovision o( Memoran!%m
Circ%lar No. 87D181 an! t$e *m&lementing -%les an!
G%i!elines (or t$e 1887 General 3lections o( t$e Liga ng
mga Baranga' O((icers an! Directors ;G%i!elines<. 2$e
memoran!%m circ%lar rea!s inso(ar as &ertinent as (ollo,s:
"#n' &ostD&roclamation &rotest m%st be (ile! ,it$ t$e B3)
,it$in t,ent'D(o%r ;/0< $o%rs (rom t$e closing o( t$e
election. 2$e B3) s$all !eci!e t$e same ,it$in (ort'Deig$t
;08< $o%rs (rom recei&t t$ereo(. 2$e !ecision o( t$e B3)
s$all be (inal an! imme!iatel' e4ec%tor' ,it$o%t &re9%!ice
to t$e (iling o( a =etition (or -evie, ,it$ t$e reg%lar co%rts
o( la,."
On t$e ot$er $an! t$e G@*D3L*N3) &rovi!es t$at t$e B3)
s$all $ave t$e (ollo,ing among its !%ties: "2o resolve an'
&ostD&roclamation electoral &rotest ,$ic$ m%st be
s%bmitte! in ,riting to t$is Boar! ,it$in t,ent'D(o%r ;/0<
/8G
$o%rs (rom t$e close o( electionA &rovi!e! sai! Boar! s$all
ren!er its !ecision ,it$in (ort'Deig$t ;08< $o%rs (rom recei&t
$ereo(A an! &rovi!e! (%rt$er t$at t$e !ecision m%st be
s%bmitte! to t$e National Liga Hea!.%arters ,it$in t,ent'D
(o%r ;/0< $o%rs (rom t$e sai! !ecision. 2$e !ecision o( t$e
Boar! o( 3lection )%&ervisors in t$is res&ect s$all be s%b9ect
to revie, b' t$e National Liga Boar! t$e !ecision o( ,$ic$
s$all be (inal an! e4ec%tor'."
Memoran!%m Circ%lar No. 87D181 ,as iss%e! b' t$e D*LG
)ecretar' &%rs%ant to t$e &o,er o( general s%&ervision o(
t$e =resi!ent over all local government %nits ,$ic$ ,as
!elegate! to t$e D*LG )ecretar' b' virt%e o( #!ministrative
Or!er No. /G7 !ate! Febr%ar' 18 188/.11 2$e =resi!entHs
&o,er o( general s%&ervision over local government %nits is
con(erre! %&on $im b' t$e Constit%tion.10 2$e &o,er o(
s%&ervision is !e(ine! as "t$e &o,er o( a s%&erior o((icer to
see to it t$at lo,er o((icers &er(orm t$eir (%nctions in
accor!ance ,it$ la,."1C 2$is is !isting%is$e! (rom t$e
&o,er o( control or "t$e &o,er o( an o((icer to alter or
mo!i(' or set asi!e ,$at a s%bor!inate o((icer $a! !one in
t$e &er(ormance o( $is !%ties an! to s%bstit%te t$e
9%!gment o( t$e (ormer (or t$e latter."
On man' occasions in t$e &ast t$is co%rt $as $a! t$e
o&&ort%nit' to !isting%is$ t$e &o,er o( s%&ervision (rom t$e
&o,er o( control. *n 2a%le vs. )antos17 ,e $el! t$at t$e
C$ie( 34ec%tive ,iel!e! no more a%t$orit' t$an t$at o(
c$ec+ing ,$et$er a local government or t$e o((icers t$ereo(
&er(orm t$eir !%ties as &rovi!e! b' stat%tor' enactments.
He cannot inter(ere ,it$ local governments &rovi!e! t$at
t$e same or its o((icers act ,it$in t$e sco&e o( t$eir
a%t$orit'. )%&ervisor' &o,er ,$en contraste! ,it$ control
is t$e &o,er o( mere oversig$t over an in(erior bo!'A it !oes
not incl%!e an' restraining a%t$orit' over s%c$ bo!'.18
O((icers in control la' !o,n t$e r%les in t$e !oing o( an act.
*( t$e' are not (ollo,e! it is !iscretionar' on $is &art to
or!er t$e act %n!one or reD!one b' $is s%bor!inate or $e
ma' even !eci!e to !o it $imsel(. )%&ervision !oes not
cover s%c$ a%t$orit'. )%&ervising o((icers merel' sees to it
t$at t$e r%les are (ollo,e! b%t $e $imsel( !oes not la' !o,n
s%c$ r%les nor !oes $e $ave t$e !iscretion to mo!i(' or
re&lace t$em. *( t$e r%les are not observe! $e ma' or!er
t$e ,or+ !one or reD!one to con(orm to t$e &rescribe! r%les.
He cannot &rescribe $is o,n manner (or t$e !oing o( t$e
act. Does t$e =resi!entHs &o,er o( general s%&ervision
e4ten! to t$e liga ng mga baranga' ,$ic$ is not a local
government %nitT
6e r%le in t$e a((irmative. *n O&inion No. 01 )eries o( 188C
t$e De&artment o( 7%stice r%le! t$at t$e liga ng mga
baranga' is a government organiBation being an
association (e!eration leag%e or %nion create! b' la, or b'
a%t$orit' o( la, ,$ose members are eit$er a&&ointe! or
electe! government o((icials. 2$e Local Government Co!e/1
!e(ines t$e liga ng mga baranga' as an organiBation o( all
baranga's (or t$e &rimar' &%r&ose o( !etermining t$e
re&resentation o( t$e liga in t$e sangg%nians an! (or
ventilating artic%lating an! cr'stalliBing iss%es a((ecting
baranga' government a!ministration an! sec%ring t$ro%g$
&ro&er an! legal means sol%tions t$ereto.// 2$e liga s$all
$ave c$a&ters at t$e m%nici&al cit' &rovincial an!
metro&olitan &olitical s%b!ivision levels. 2$e m%nici&al an!
cit' c$a&ters o( t$e liga s$all be com&ose! o( t$e baranga'
re&resentatives o( t$e m%nici&al an! cit' baranga's
res&ectivel'. 2$e !%l' electe! &resi!ents o( t$e com&onent
m%nici&al an! cit' c$a&ters s$all constit%te t$e &rovincial
c$a&ter or t$e metro&olitan &olitical s%b!ivision c$a&ter.
2$e !%l' electe! &resi!ents o( $ig$l' %rbaniBe! cities
&rovincial c$a&ters t$e Metro&olitan Manila c$a&ter an!
metro&olitan &olitical s%b!ivision c$a&ters s$all constit%te
t$e National Liga ng mga Baranga'.
2$e liga at t$e m%nici&al cit' &rovincial metro&olitan
&olitical s%b!ivision an! national levels !irectl' elect a
&resi!ent a viceD&resi!ent an! (ive ;C< members o( t$e
boar! o( !irectors. 2$e boar! s$all a&&oint its secretar' an!
treas%rer an! create s%c$ ot$er &ositions as it ma' !eem
necessar' (or t$e management o( t$e c$a&ter. 2$e ligas are
&rimaril' governe! b' t$e &rovisions o( t$e Local
Government Co!e./C Ho,ever t$eir res&ective constit%tion
an! b'Dla,s s$all govern all ot$er matters a((ecting t$e
internal organiBation o( t$e liga not ot$er,ise &rovi!e! (or in
t$e Local Government Co!e &rovi!e! t$at t$e constit%tion
an! b'Dla,s s$all be s%&&letor' to t$e &rovisions o( Boo+ ***
2itle K* o( t$e Local Government Co!e an! s$all al,a's
con(orm to t$e &rovisions o( t$e Constit%tion an! e4isting
la,s.
/87
Having in min! t$e (oregoing &rinci&les ,e r%le t$at
Memoran!%m Circ%lar No. 87D181 o( t$e D*LG inso(ar as it
a%t$oriBes t$e (iling a =etition (or -evie, o( t$e !ecision o(
t$e B3) ,it$ t$e reg%lar co%rts in a &ost &roclamation
electoral &rotest is o( !o%bt(%l constit%tionalit'. 6e agree
,it$ bot$ t$e &etitioner an! t$e )olicitor General t$at in
a%t$oriBing t$e (iling o( t$e &etition (or revie, o( t$e
!ecision o( t$e B3) ,it$ t$e reg%lar co%rts t$e D*LG
)ecretar' in e((ect amen!e! an! mo!i(ie! t$e G@*D3L*N3)
&rom%lgate! b' t$e National Liga Boar! an! a!o&te! b' t$e
L*G# ,$ic$ &rovi!es t$at t$e !ecision o( t$e B3) s$all be
s%b9ect to revie, b' t$e National Liga Boar!. 2$e
amen!ment o( t$e G@*D3L*N3) is more t$an an e4ercise o(
t$e &o,er o( s%&ervision b%t is an e4ercise o( t$e &o,er o(
control ,$ic$ t$e =resi!ent !oes not $ave over t$e L*G#.
#lt$o%g$ t$e D*LG is given t$e &o,er to &rescribe r%les
reg%lations an! ot$er iss%ances t$e #!ministrative Co!e
limits its a%t$orit' to merel' "monitoring com&liance" b'
local government %nits o( s%c$ iss%ances./7 2o monitor
means "to ,atc$ observe or c$ec+" an! is com&atible ,it$
t$e &o,er o( s%&ervision o( t$e D*LG )ecretar' over local
governments ,$ic$ is limite! to c$ec+ing ,$et$er t$e local
government %nit concerne! or t$e o((icers t$ereo( &er(orm
t$eir !%ties as &er stat%tor' enactments. Besi!es an' !o%bt
as to t$e &o,er o( t$e D*LG )ecretar' to inter(ere ,it$ local
a((airs s$o%l! be resolve! in (avor o( t$e greater a%tonom'
o( t$e local government.
,ational Liga ng mga Baranga# v. Parees
Facts: On 11 7%ne 1887 -a'os =%nong Baranga' o( Baranga' C/
District ** Zone C District ** Caloocan Cit' (ile! a &etition (or
&ro$ibition an! man!am%s ,it$ &ra'er (or a ,rit o( &reliminar'
in9%nction an!?or tem&orar' restraining or!er an! !amages be(ore
t$e -2C o( Caloocan alleging t$at Davi! =%nong Baranga' o(
Baranga' 77 Zone 7 Caloocan Cit' an! t$en &resi!ent o( t$e Liga
C$a&ter o( Caloocan Cit' an! o( t$e Liga ng mga Baranga' National
C$a&ter committe! certain irreg%larities in t$e notice ven%e an!
con!%ct o( t$e &ro&ose! s'nc$roniBe! Liga ng mga Baranga'
elections in 1887. On 11 7%ne 1887 t$e 34ec%tive 7%!ge iss%e! a
tem&orar' restraining or!er ;2-O< e((ective (or sevent'Dt,o ;7/<
$o%rs en9oining t$e $ol!ing o( t$e general members$i& an!
election meeting o( Liga C$a&ter o( Caloocan Cit' on 10 7%ne 187C.
Ho,ever t$e 2-O ,as allege!l' not &ro&erl' serve! on $erein
&etitioner Davi! an! so t$e election (or t$e o((icers o( t$e LigaD
Caloocan ,as $el! as sc$e!%le!. =etitioner Davi! ,as &roclaime!
=resi!ent o( t$e LigaDCaloocan an! t$erea(ter too+ $is oat$ an!
ass%me! t$e &osition o( e4Do((icio member o( t$e )angg%niang
=anl%ngso! o( Caloocan. On 17 7%l' 1887 res&on!ent -a'os (ile! a
secon! &etition t$is time (or .%o ,arranto man!am%s an!
&ro$ibition ,it$ &ra'er (or a ,rit o( &reliminar' in9%nction an!?or
tem&orar' restraining or!er an! !amages against Davi! Nanc'
W%im&o =resi!ing O((icer o( t$e )angg%niang =anl%ngso! o(
Caloocan Cit' an! )ecretar' Barbers.7 -a'os allege! t$at $e ,as
electe! =resi!ent o( t$e Liga Caloocan C$a&ter in t$e elections $el!
on 10 7%ne 1887 b' t$e members o( t$e Caloocan C$a&ter &%rs%ant
to t$eir -esol%tion?=etition No. 551D87.8 On 18 7%l' 1887 t$e
&resi!ing 9%!ge grante! t$e 2-O en9oining t$erein res&on!ents
Davi! W%im&o an! )ecretar' Barbers (rom &rocee!ing ,it$ t$e
s'nc$roniBe! elections (or t$e =rovincial an! Metro&olitan C$a&ters
o( t$e Liga sc$e!%le! on 18 7%l' 1887 b%t onl' (or t$e &%r&ose o(
maintaining t$e stat%s .%o an! e((ective (or a &erio! not e4cee!ing
sevent'Dt,o ;7/< $o%rs. 3vent%all' on 18 7%l' 1887 at &etitioner
Davi!>s instance )&ecial Civil #ction ;)C#< No. CDC1/ &en!ing
be(ore Branc$ 1/G ,as consoli!ate! ,it$ )C# No. CDC58 &en!ing
be(ore Branc$ 1/0. Be(ore t$e consoli!ation o( t$e cases on /C 7%l'
1887 t$e D*LG t$ro%g$ res&on!ent )ecretar' Barbers (ile! in )C#
No. CDC1/ an @rgent Motion invo+ing t$e =resi!ent>s &o,er o(
general s%&ervision over all local government %nits an! see+ing
t$at t$e D*LG &%rs%ant to its !elegate! &o,er o( general
s%&ervision be a&&ointe! as t$e *nterim Careta+er to manage an!
a!minister t$e a((airs o( t$e Liga %ntil s%c$ time t$at t$e ne, set
o( National Liga O((icers s$all $ave been !%l' electe! an! ass%me!
o((ice.
*ss%e: 6ON t$e Liga ng mga Baranga' is s%b9ect to D*LG
s%&ervision.
BitoDOnon v. Fernan!eB: Co%rt r%le! t$at t$e =resi!ent>s
&o,er o( t$e general s%&ervision as e4ercise! t$erein b'
t$e D*LG )ecretar' as $is alter ego e4ten!s to t$e Liga ng
mga Baranga'.
Does t$e =resi!ent>s &o,er o( general s%&ervision e4ten! to
t$e liga ng mga baranga' ,$ic$ is not a local government
/88
%nitT 6e r%le in t$e a((irmative. *n O&inion No. 01 )eries o(
188C t$e De&artment o( 7%stice r%le! t$at t$e liga ng mga
baranga' is a government organiBation being an
association (e!eration leag%e or %nion create! b' la, or b'
a%t$orit' o( la, ,$ose members are eit$er a&&ointe! or
electe! government o((icials. 2$e Local Government Co!e
!e(ines t$e liga ng mga baranga' as an organiBation o( all
baranga's (or t$e &rimar' &%r&ose o( !etermining t$e
re&resentation o( t$e liga in t$e sangg%nians an! (or
ventilating artic%lating an! cr'stalliBing iss%es a((ecting
baranga' government a!ministration an! sec%ring t$ro%g$
&ro&er an! legal means sol%tions t$ereto.
2$e rationale (or ma+ing t$e Liga s%b9ect to D*LG
s%&ervision is .%ite evi!ent ,$et$er (rom t$e &ers&ectives
o( logic or o( &racticalit'. 2$e Liga is an aggro%&ment o(
baranga's ,$ic$ are in t%rn re&resente! t$erein b' t$eir
res&ective &%nong baranga's. 2$e re&resentatives o( t$e
Liga sit in an e4 o((icio ca&acit' at t$e m%nici&al cit' an!
&rovincial sangg%nians. #s s%c$ t$e' en9o' all t$e &o,ers
an! !isc$arge all t$e (%nctions o( reg%lar m%nici&al
co%ncilors cit' co%ncilors or &rovincial boar! members as
t$e case ma' be. 2$%s t$e Liga is t$e ve$icle t$ro%g$ ,$ic$
t$e baranga' &artici&ates in t$e enactment o( or!inances
an! (orm%lation o( &olicies at all t$e legislative local levels
$ig$er t$an t$e sangg%niang baranga' at t$e same time
serving as t$e mec$anism (or t$e bottomDtoDto& a&&roac$ o(
!evelo&ment.
*n t$e case at bar even be(ore t$e res&on!ent 7%!ge
!esignate! t$e D*LG as interim careta+er o( t$e Liga on /8
7%l' 1887 it iss%e! Memoran!%m Circ%lar No. 87D17G
!irecting local government o((icials not to recogniBe Davi!
as t$e National Liga =resi!ent an! $is &rono%ncements
relating to t$e a((airs o( t$e Liga. Not onl' ,as t$e action
&remat%re it even smac+e! o( s%&ercilio%sness an!
in9%!icio%sness. 2$e D*LG is t$e to&most government
agenc' ,$ic$ maintains coor!ination ,it$ an! e4ercises
s%&ervision over local government %nits an! its m%ltiDlevel
leag%es. #s s%c$ it s$o%l! be (ort$rig$t circ%ms&ect an!
s%&&ortive in its !ealings ,it$ t$e Ligas es&eciall' t$e Liga
ng mga Baranga'. 2$e in!is&ensable role &la'e! b' t$e
latter in t$e !evelo&ment o( t$e baranga's an! t$e
&romotion o( t$e ,el(are o( t$e in$abitants t$ereo( !eserve
no less t$an t$e (%ll s%&&ort an! res&ect o( t$e ot$er
agencies o( government. #s t$e Co%rt $el! in t$e case o(
)an 7%an v. Civil )ervice Commission8/ o%r national o((icials
s$o%l! not onl' com&l' ,it$ t$e constit%tional &rovisions on
local a%tonom' b%t s$o%l! also a&&reciate t$e s&irit o(
libert' %&on ,$ic$ t$ese &rovisions are base!.
6$en t$e res&on!ent 9%!ge event%all' a&&ointe! t$e D*LG
as interim careta+er to manage an! a!minister t$e a((airs o(
t$e Liga s$e e((ectivel' remove! t$e management (rom t$e
National Liga Boar! an! veste! control o( t$e Liga on t$e
D*LG. 3ven a c%rsor' glance at t$e D*LG>s &ra'er (or
a&&ointment as interim careta+er o( t$e Liga "to manage
an! a!minister t$e a((airs o( t$e Liga %ntil s%c$ time t$at
t$e ne, set o( National Liga o((icers s$all $ave been !%l'
electe! an! ass%me! o((ice" reveals t$at ,$at t$e D*LG
,ante! ,as to ta+e control over t$e Liga. 3ven i( sai!
"careta+ers$i&" ,as contem&late! to last (or a limite! time
or onl' %ntil a ne, set o( o((icers ass%me o((ice t$e (act
remains t$at it ,as a con(erment o( control in !erogation o(
t$e Constit%tion.
6it$ $is De&artment alrea!' a&&ointe! as interim careta+er
o( t$e Liga )ecretar' Barbers n%lli(ie! t$e res%lts o( t$e Liga
elections an! &rom%lgate! D*LG Memoran!%m Circ%lar No.
87D181 !ate! 11 #%g%st 1887 ,$ere $e lai! !o,n t$e
s%&&lemental g%i!elines (or t$e 1887 s'nc$roniBe! elections
o( t$e &rovincial an! metro&olitan c$a&ters an! (or t$e
election o( t$e national c$a&ter o( t$e Liga ng mga
Baranga'A sc$e!%le! !ates (or t$e ne, &rovincial
metro&olitan an! national c$a&ter electionsA an! a&&ointe!
res&on!ent -a'os as &resi!ent o( LigaDCaloocan C$a&ter.
2$ese acts o( t$e D*LG ,ent be'on! t$e s&$ere o( general
s%&ervision an! constit%te! !irect inter(erence ,it$ t$e
&olitical a((airs not onl' o( t$e Liga b%t more im&ortantl'
o( t$e baranga' as an instit%tion. 2$e election o( Liga
o((icers is &art o( t$e Liga>s internal organiBation (or ,$ic$
t$e latter $as alrea!' &rovi!e! g%i!elines. *n s%ccession t$e
D*LG ass%me! ste,ar!s$i& an! 9%ris!iction over t$e Liga
a((airs iss%e! s%&&lemental g%i!elines (or t$e election an!
n%lli(ie! t$e e((ects o( t$e LigaDcon!%cte! elections. Clearl'
,$at t$e D*LG ,iel!e! ,as t$e &o,er o( control ,$ic$ even
t$e =resi!ent !oes not $ave.
/88
F%rt$ermore t$e D*LG ass%me! control ,$en it a&&ointe!
res&on!ent -a'os as &resi!ent o( t$e LigaDCaloocan C$a&ter
&rior to t$e ne,l' sc$e!%le! general Liga elections
alt$o%g$ &etitioner Davi!>s term $a! not 'et e4&ire!. 2$e
D*LG s%bstit%te! its c$oice ,$o ,as -a'os over t$e c$oice
o( ma9orit' o( t$e &%nong baranga' o( Caloocan ,$o ,as
t$e inc%mbent =resi!ent &etitioner Davi!. 2$e latter ,as
electe! an! $a! in (act been sitting as an e4Do((icio member
o( t$e sangg%niang &anl%ngso! in accor!ance ,it$ t$e Liga
Constit%tion an! B'DLa,s. :et t$e D*LG e4ten!e! t$e
a&&ointment to res&on!ent -a'os alt$o%g$ it ,as a,are
t$at t$e &osition ,as t$e s%b9ect o( a .%o ,arranto
&rocee!ing instit%te! b' -a'os $imsel( t$ereb' &reem&ting
t$e o%tcome o( t$at case. *t ,as ba! eno%g$ t$at t$e D*LG
ass%me! t$e &o,er o( control it ,as ,orse ,$en it ma!e
%se o( t$e &o,er ,it$ evi!ent bias an! &artialit'.
#s t$e entit' e4ercising s%&ervision over t$e Liga ng mga
Baranga' t$e D*LG>s a%t$orit' over t$e Liga is limite! to
seeing to it t$at t$e r%les are (ollo,e! b%t it cannot la'
!o,n s%c$ r%les itsel( nor !oes it $ave t$e !iscretion to
mo!i(' or re&lace t$em. *n t$is &artic%lar case t$e most
t$at t$e D*LG co%l! !o ,as revie, t$e acts o( t$e inc%mbent
o((icers o( t$e Liga in t$e con!%ct o( t$e elections to
!etermine i( t$e' committe! an' violation o( t$e Liga>s
Constit%tion an! B'Dla,s an! its im&lementing r%les. *( t$e
National Liga Boar! an! its o((icers $a! violate! Liga r%les
t$e D*LG s$o%l! $ave or!ere! t$e Liga to con!%ct anot$er
election in accor!ance ,it$ t$e Liga>s o,n r%les b%t not in
obeisance to D*LGD!ictate! g%i!elines. Neit$er $a! t$e D*LG
t$e a%t$orit' to remove t$e inc%mbent o((icers o( t$e Liga
an! re&lace t$em even tem&oraril' ,it$ %nelecte! Liga
o((icers.
Li+e t$e local government %nits t$e Liga ng mga Baranga'
is not s%b9ect to control b' t$e C$ie( 34ec%tive or $is alter
ego. *n t$e BitoDOnon80 case t$is Co%rt $el! t$at D*LG
Memoran!%m Circ%lar No. 87D181 inso(ar as it a%t$oriBe!
t$e (iling o( a &etition (or revie, o( t$e !ecision o( t$e Boar!
o( 3lection )%&ervisors ;B3)< ,it$ t$e reg%lar co%rts in a
&ostD&roclamation electoral &rotest involve! t$e e4ercise o(
control as it in e((ect amen!e! t$e g%i!elines alrea!'
&rom%lgate! b' t$e Liga. O((icers in control la' !o,n t$e
r%les in t$e !oing o( an act. *( t$e' are not (ollo,e! it is
!iscretionar' on $is &art to or!er t$e act %n!one or re!one
b' $is s%bor!inate or $e ma' even !eci!e to !o it $imsel(.
)%&ervision !oes not cover s%c$ a%t$orit'. )%&ervising
o((icers merel' see to it t$at t$e r%les are (ollo,e! b%t $e
$imsel( !oes not la' !o,n s%c$ r%les nor !oes $e $ave t$e
!iscretion to mo!i(' or re&lace t$em. *( t$e r%les are not
observe! $e ma' or!er t$e ,or+ !one or reD!one to
con(orm (or to t$e &rescribe! r%les. He cannot &rescribe $is
o,n manner t$e !oing o( t$e act. 2$e amen!ment o( t$e
G@*D3L*N3) is more t$an an e4ercise o( t$e &o,er o(
s%&ervision b%t is an e4ercise o( t$e &o,er o( control ,$ic$
t$e =resi!ent !oes not $ave over t$e L*G#. #lt$o%g$ t$e
D*LG is given t$e &o,er to &rescribe r%les reg%lations an!
ot$er iss%ances t$e #!ministrative Co!e limits its a%t$orit'
to merel' "monitoring com&liance b' local government %nits
o( s%c$ iss%ances. 2o monitor means to ",atc$ observe or
c$ec+" an! is com&atible ,it$ t$e &o,er o( s%&ervision o(
t$e D*LG )ecretar' over local governments ,$ic$ is limite!
to c$ec+ing ,$et$er t$e local government %nit concerne! or
t$e o((icers t$ereo( &er(orm t$eir !%ties as &er stat%tor'
enactments. Besi!es an' !o%bt as to t$e &o,er o( t$e D*LG
)ecretar' to inter(ere ,it$ local a((airs s$o%l! be resolve! in
(avor o( t$e greater a%tonom' o( t$e local government.
*n 2a%le8G t$e Co%rt r%le! t$at t$e )ecretar' o( Local
Government $a! no a%t$orit' to &ass %&on t$e vali!it' or
reg%larit' o( t$e election o( o((icers o( +ati&%nan ng mga
baranga' or baranga' co%ncils. *n t$at case a &rotest ,as
lo!ge! be(ore t$e )ecretar' o( Local Government regar!ing
several irreg%larities in an! see+ing t$e n%lli(ication o( t$e
election o( o((icers o( t$e Fe!eration o( #ssociations o(
Baranga' Co%ncils ;F#BC< o( Catan!%anes. 2$en Local
Government )ecretar' L%is )antos iss%e! a resol%tion
n%lli('ing t$e election o( o((icers an! or!ere! a ne, one to
be con!%cte!. 2$e Co%rt r%le!: Constr%ing t$e constit%tional
limitation on t$e &o,er o( general s%&ervision o( t$e
=resi!ent over local governments 6e $ol! t$at res&on!ent
)ecretar' $as no a%t$orit' to &ass %&on t$e vali!it' or
reg%larit' o( t$e o((icers o( t$e +ati&%nan. 2o allo,
res&on!ent )ecretar' to !o so ,ill give $im more &o,er
t$an t$e la, or t$e Constit%tion grants. *t ,ill in e((ect give
$im control over local government o((icials (or it ,ill &ermit
$im to inter(ere in a &%rel' !emocratic an! nonD&artisan
155
activit' aime! at strengt$ening t$e baranga' as t$e basic
com&onent o( local governments so t$at t$e %ltimate goal o(
(%llest a%tonom' ma' be ac$ieve!. *n (act $is or!er t$at t$e
ne, elections to be con!%cte! be &resi!e! b' t$e -egional
Director is a clear an! !irect inter(erence b' t$e De&artment
,it$ t$e &olitical a((airs o( t$e baranga's ,$ic$ is not
&ermitte! b' t$e limitation o( &resi!ential &o,er to general
s%&ervision over local governments. #ll given t$e Co%rt is
convince! t$at t$e assaile! or!er ,as iss%e! ,it$ grave
ab%se o( !iscretion ,$ile t$e acts o( t$e res&on!ent
)ecretar' incl%!ing D*LG Memoran!%m Circ%lars No. 87D17G
an! No. 87D181 are %nconstit%tional an! %ltra vires as t$e'
all entaile! t$e con(erment or e4ercise o( control S a &o,er
,$ic$ is !enie! b' t$e Constit%tion even to t$e =resi!ent.
Batangas v. Romulo
Facts: 2$e =rovince o( Batangas re&resente! b' Governor
Man!anas (ile! t$e &resent &etition (or certiorari &ro$ibition an!
man!am%s %n!er -%le GC o( t$e -%les o( Co%rt as amen!e! to
!eclare as %nconstit%tional an! voi! certain &rovisos containe! in
t$e General #&&ro&riations #cts ;G##< o( 1888 /555 an! /551
inso(ar as t$e' %ni(orml' earmar+e! (or eac$ corres&on!ing 'ear
t$e amo%nt o( (ive billion &esos ;=C555555555.55< o( t$e *nternal
-even%e #llotment ;*-#< (or t$e Local Government )ervice
3.%aliBation F%n! ;LG)3F< an! im&ose! con!itions (or t$e release
t$ereo(.
*ss%e: 6ON t$e &rovisos in t$e G##) o( 1888D/551 relating to t$e
LG)3F as ,ell as t$e Oversig$t Committee>s -esol%tions iss%e!
&%rs%ant t$ereto are %nconstit%tional an! voi!
#rticle ** o( t$e Constit%tion t$e )tate $as e4&ressl'
a!o&te! as a &olic' t$at: )ection /C. 2$e )tate s$all ens%re
t$e a%tonom' o( local governments.
Consistent ,it$ t$e &rinci&le o( local a%tonom' t$e
Constit%tion con(ines t$e =resi!ent>s &o,er over t$e LG@s to
one o( general s%&ervision. 2$is &rovision $as been
inter&rete! to e4cl%!e t$e &o,er o( control. 2$e !istinction
bet,een t$e t,o &o,ers ,as en%nciate! in Drilon v. Lim: #n
o((icer in control la's !o,n t$e r%les in t$e !oing o( an act.
*( t$e' are not (ollo,e! $e ma' in $is !iscretion or!er t$e
act %n!one or reD!one b' $is s%bor!inate or $e ma' even
!eci!e to !o it $imsel(. )%&ervision !oes not cover s%c$
a%t$orit'. 2$e s%&ervisor or s%&erinten!ent merel' sees to
it t$at t$e r%les are (ollo,e! b%t $e $imsel( !oes not la'
!o,n s%c$ r%les nor !oes $e $ave t$e !iscretion to mo!i('
or re&lace t$em. *( t$e r%les are not observe! $e ma' or!er
t$e ,or+ !one or reD!one b%t onl' to con(orm to t$e
&rescribe! r%les. He ma' not &rescribe $is o,n manner (or
!oing t$e act. He $as no 9%!gment on t$is matter e4ce&t to
see to it t$at t$e r%les are (ollo,e!.
2$e Local Government Co!e o( 1881 ,as enacte! to (les$
o%t t$e man!ate o( t$e Constit%tion. 2$e )tate &olic' on
local a%tonom' is am&li(ie! in )ection / t$ereo(: )ec. /.
Declaration o( =olic'. X ;a< *t is $ereb' !eclare! t$e &olic' o(
t$e )tate t$at t$e territorial an! &olitical s%b!ivisions o( t$e
)tate s$all en9o' gen%ine an! meaning(%l local a%tonom' to
enable t$em to attain t$eir (%llest !evelo&ment as sel(D
reliant comm%nities an! ma+e t$em more e((ective &artners
in t$e attainment o( national goals. 2o,ar! t$is en! t$e
)tate s$all &rovi!e (or a more res&onsive an! acco%ntable
local government str%ct%re instit%te! t$ro%g$ a s'stem o(
!ecentraliBation ,$ereb' local government %nits s$all be
given more &o,ers a%t$orit' res&onsibilities an!
reso%rces. 2$e &rocess o( !ecentraliBation s$all &rocee!
(rom t$e National Government to t$e local government
%nits.
2$e assaile! &rovisos in t$e G##s o( 1888 /555 an! /551
an! t$e OCD resol%tions violate t$e constit%tional &rece&t
on local a%tonom'
#rticle J o( t$e Constit%tion rea!s: )ec. G. Local
government %nits s$all $ave a 9%st s$are as !etermine! b'
la, in t$e national ta4es ,$ic$ s$all be a%tomaticall'
release! to t$em. 6$en &arse! it ,o%l! be rea!il' seen
t$at t$is &rovision man!ates t$at ;1< t$e LG@s s$all $ave a
E9%st s$areF in t$e national ta4esA ;/< t$e E9%st s$areF s$all
be !etermine! b' la,A an! ;1< t$e E9%st s$areF s$all be
a%tomaticall' release! to t$e LG@s.
2$e Local Government Co!e o( 1881 among its salient
&rovisions %n!erscores t$e a%tomatic release o( t$e LG@s>
E9%st s$areF in t$is ,ise: )ec. 18. =o,er to Generate an!
#&&l' -eso%rces. Local government %nits s$all $ave t$e
&o,er an! a%t$orit' to establis$ an organiBation t$at s$all
be res&onsible (or t$e e((icient an! e((ective im&lementation
151
o( t$eir !evelo&ment &lans &rogram ob9ectives an!
&rioritiesA to create t$eir o,n so%rces o( reven%e an! to lev'
ta4es (ees an! c$arges ,$ic$ s$all accr%e e4cl%sivel' (or
t$eir %se an! !is&osition an! ,$ic$ s$all be retaine! b'
t$emA to $ave a 9%st s$are in national ta4es ,$ic$ s$all be
a%tomaticall' an! !irectl' release! to t$em ,it$o%t nee! o(
(%rt$er actionA )ec. /8G. #%tomatic -elease o( )$ares. ;a<
2$e s$are o( eac$ local government %nit s$all be release!
,it$o%t nee! o( an' (%rt$er action !irectl' to t$e &rovincial
cit' m%nici&al or baranga' treas%rer as t$e case ma' be
on a .%arterl' basis ,it$in (ive ;C< !a's a(ter t$e en! o(
eac$ .%arter an! ,$ic$ s$all not be s%b9ect to an' lien or
$ol!bac+ t$at ma' be im&ose! b' t$e national government
(or ,$atever &%r&ose. ;b< Not$ing in t$is C$a&ter s$all be
%n!erstoo! to !iminis$ t$e s$are o( local government %nits
%n!er e4isting la,s.
#%tomatic: invol%ntar' eit$er ,$oll' or to a ma9or e4tent so
t$at an' activit' o( t$e ,ill is largel' negligibleA o( a re(le4
nat%reA ,it$o%t volitionA mec$anicalA li+e or s%ggestive o( an
a%tomaton. #s s%c$ t$e LG@s are not re.%ire! to &er(orm
an' act to receive t$e E9%st s$areF accr%ing to t$em (rom
t$e national co((ers. #s em&$asiBe! b' t$e Local
Government Co!e o( 1881 t$e E9%st s$areF o( t$e LG@s
s$all be release! to t$em E,it$o%t nee! o( (%rt$er action.F
Constr%ing )ection /8G o( t$e LGC ,e $el! in =imentel 7r.
v. #g%irre: )ection 0 o( #O 17/ cannot $o,ever be %&$el!.
# basic (eat%re o( local (iscal a%tonom' is t$e a%tomatic
release o( t$e s$ares o( LG@s in t$e National internal
reven%e. 2$is is man!ate! b' no less t$an t$e Constit%tion.
2$e Local Government Co!e s&eci(ies (%rt$er t$at t$e
release s$all be ma!e !irectl' to t$e LG@ concerne! ,it$in
(ive ;C< !a's a(ter ever' .%arter o( t$e 'ear an! Es$all not
be s%b9ect to an' lien or $ol!bac+ t$at ma' be im&ose! b'
t$e national government (or ,$atever &%r&ose.F #s a r%le
t$e term E)H#LLF is a ,or! o( comman! t$at m%st be given
a com&%lsor' meaning. 2$e &rovision is t$ere(ore
*M=3-#2*K3.
)ection 0 o( #O 17/ $o,ever or!ers t$e ,it$$ol!ing
e((ective 7an%ar' 1 1888 o( 15 &ercent o( t$e LG@s> *-#
E&en!ing t$e assessment an! eval%ation b' t$e
Develo&ment B%!get Coor!inating Committee o( t$e
emerging (iscal sit%ationF in t$e co%ntr'. )%c$ ,it$$ol!ing
clearl' contravenes t$e Constit%tion an! t$e la,. #lt$o%g$
tem&orar' it is e.%ivalent to a $ol!bac+ ,$ic$ means
Esomet$ing $el! bac+ or ,it$$el! o(ten tem&oraril'.F
Hence t$e Etem&orar'F nat%re o( t$e retention b' t$e
national government !oes not matter. #n' retention is
&ro$ibite!.
*n s%m ,$ile )ection 1 o( #O 17/ ma' be %&$el! as an
a!visor' e((ecte! in times o( national crisis )ection 0
t$ereo( $as no color o( vali!it' at all. 2$e latter &rovision
e((ectivel' encroac$es on t$e (iscal a%tonom' o( local
governments. Conce!e!l' t$e =resi!ent ,as ,ellD
intentione! in iss%ing $is Or!er to ,it$$ol! t$e LG@s> *-#
b%t t$e r%le o( la, re.%ires t$at even t$e best intentions
m%st be carrie! o%t ,it$in t$e &arameters o( t$e
Constit%tion an! t$e la,. Keril' la%!able &%r&oses m%st be
carrie! o%t b' legal met$o!s.
2$e E9%st s$areF o( t$e LG@s is incor&orate! as t$e *-# in
t$e a&&ro&riations la, or G## enacte! b' Congress
ann%all'. @n!er t$e assaile! &rovisos in t$e G##s o( 1888
/555 an! /551 a &ortion o( t$e *-# in t$e amo%nt o( (ive
billion &esos ,as earmar+e! (or t$e LG)3F an! t$ese
&rovisos im&ose! t$e con!ition t$at Es%c$ amo%nt s$all be
release! to t$e local government %nits s%b9ect to t$e
im&lementing r%les an! reg%lations incl%!ing s%c$
mec$anisms an! g%i!elines (or t$e e.%itable allocations an!
!istrib%tion o( sai! (%n! among local government %nits
s%b9ect to t$e g%i!elines t$at ma' be &rescribe! b' t$e
Oversig$t Committee on Devol%tion.F =%rs%ant t$ereto t$e
Oversig$t Committee t$ro%g$ t$e assaile! OCD resol%tions
a&&ortione! t$e (ive billion &esos LG)3F. )igni(icantl' t$e
LG)3F co%l! not be release! to t$e LG@s ,it$o%t t$e
Oversig$t Committee>s &rior a&&roval. F%rt$er ,it$ res&ect
to t$e &ortion o( t$e LG)3F allocate! (or vario%s &ro9ects o(
t$e LG@s ;=1 billion (or 1888A =1.C billion (or /555 an! =/
billion (or /551< t$e Oversig$t Committee t$ro%g$ t$e
assaile! OCD resol%tions lai! !o,n g%i!elines an!
mec$anisms t$at t$e LG@s $a! to com&l' ,it$ be(ore t$e'
co%l! avail o( (%n!s (rom t$is &ortion o( t$e LG)3F. 2$e
g%i!elines re.%ire! ;a< t$e LG@s to i!enti(' t$e &ro9ects
eligible (or (%n!ing base! on t$e criteria lai! !o,n b' t$e
Oversig$t CommitteeA ;b< t$e LG@s to s%bmit t$eir &ro9ect
&ro&osals to t$e D*LG (or a&&raisalA ;c< t$e &ro9ect &ro&osals
15/
t$at &asse! t$e a&&raisal o( t$e D*LG to be s%bmitte! to t$e
Oversig$t Committee (or revie, eval%ation an! a&&roval. *t
,as onl' %&on a&&roval t$ereo( t$at t$e Oversig$t
Committee ,o%l! !irect t$e DBM to release t$e (%n!s (or
t$e &ro9ects.
2o t$e Co%rt>s min! t$e entire &rocess involving t$e
!istrib%tion an! release o( t$e LG)3F is constit%tionall'
im&ermissible. 2$e LG)3F is &art o( t$e *-# or E9%st s$areF
o( t$e LG@s in t$e national ta4es. 2o s%b9ect its !istrib%tion
an! release to t$e vagaries o( t$e im&lementing r%les an!
reg%lations incl%!ing t$e g%i!elines an! mec$anisms
%nilaterall' &rescribe! b' t$e Oversig$t Committee (rom
time to time as sanctione! b' t$e assaile! &rovisos in t$e
G##s o( 1888 /555 an! /551 an! t$e OCD resol%tions
ma+es t$e release not a%tomatic a (lagrant violation o( t$e
constit%tional an! stat%tor' man!ate t$at t$e E9%st s$areF o(
t$e LG@s Es$all be a%tomaticall' release! to t$em.F 2$e
LG@s are t$%s &lace! at t$e merc' o( t$e Oversig$t
Committee.
6$ere t$e la, t$e Constit%tion in t$is case is clear an!
%nambig%o%s it m%st be ta+en to mean e4actl' ,$at it
sa's an! co%rts $ave no c$oice b%t to see to it t$at t$e
man!ate is obe'e!. Moreover as correctl' &osite! b' t$e
&etitioner t$e %se o( t$e ,or! Es$allF connotes a man!ator'
or!er. *ts %se in a stat%te !enotes an im&erative obligation
an! is inconsistent ,it$ t$e i!ea o( !iscretion.
*n!ee! t$e Oversig$t Committee e4ercising !iscretion even
control over t$e !istrib%tion an! release o( a &ortion o( t$e
*-# t$e LG)3F is an anat$ema to an! s%bversive o( t$e
&rinci&le o( local a%tonom' as embo!ie! in t$e Constit%tion.
Moreover it (in!s no stat%tor' basis at all as t$e Oversig$t
Committee ,as create! merel' to (orm%late t$e r%les an!
reg%lations (or t$e e((icient an! e((ective im&lementation o(
t$e Local Government Co!e o( 1881 to ens%re Ecom&liance
,it$ t$e &rinci&les o( local a%tonom' as !e(ine! %n!er t$e
Constit%tion.FU/8V *n (act its creation ,as &lace! %n!er t$e
title o( E2ransitor' =rovisionsF signi('ing its a! $oc
c$aracter. #ccor!ing to )enator #.%ilino W. =imentel t$e
&rinci&al a%t$or an! s&onsor o( t$e bill t$at event%all'
became -e&. #ct No. 71G5 t$e Committee>s ,or+ ,as
s%&&ose! to be !one a 'ear (rom t$e a&&roval o( t$e Co!e
or on October 15 188/.U15V 2$e Oversig$t Committee>s
a%t$orit' is %n!o%bte!l' limite! to t$e im&lementation o(
t$e Local Government Co!e o( 1881 not to s%&&lant or
s%bvert t$e same. Neit$er can it e4ercise control over t$e
*-# or even a &ortion t$ereo( o( t$e LG@s.
2$at t$e a%tomatic release o( t$e *-# ,as &recisel'
inten!e! to g%arantee an! &romote local a%tonom' can be
gleane! (rom t$e !isc%ssion bet,een Messrs. 7ose N.
Nolle!o an! -egala!o M. Maambong t$en members o( t$e
188G Constit%tional Commission.
2$e conce&t o( local a%tonom' ,as e4&laine! in GanBon v.
Co%rt o( #&&eals in t$is ,ise: #s t$e Constit%tion itsel(
!eclares local a%tonom' ]means a more res&onsive an!
acco%ntable local government str%ct%re instit%te! t$ro%g$ a
s'stem o( !ecentraliBation.> 2$e Constit%tion as ,e
observe! !oes not$ing more t$an to brea+ %& t$e
mono&ol' o( t$e national government over t$e a((airs o(
local governments an! as &%t b' &olitical a!$erents to
Eliberate t$e local governments (rom t$e im&erialism o(
Manila.F #%tonom' $o,ever is not meant to en! t$e
relation o( &artners$i& an! inter!e&en!ence bet,een t$e
central a!ministration an! local government %nits or
ot$er,ise to %s$er in a regime o( (e!eralism. 2$e C$arter
$as not ta+en s%c$ a ra!ical ste&. Local governments
%n!er t$e Constit%tion are s%b9ect to reg%lation $o,ever
limite! an! (or no ot$er &%r&ose t$an &recisel' albeit
&ara!o4icall' to en$ance sel(Dgovernment.
#s ,e observe! in one case !ecentraliBation means
!evol%tion o( national a!ministration X b%t not &o,er X to
t$e local levels. 2$%s: No, a%tonom' is eit$er
!ecentraliBation o( a!ministration or !ecentraliBation o(
&o,er. 2$ere is !ecentraliBation o( a!ministration ,$en t$e
central government !elegates a!ministrative &o,ers to
&olitical s%b!ivisions in or!er to broa!en t$e base o(
government &o,er an! in t$e &rocess to ma+e local
governments ]more res&onsive an! acco%ntable> an!
]ens%re t$eir (%llest !evelo&ment as sel(Dreliant comm%nities
an! ma+e t$em more e((ective &artners in t$e &%rs%it o(
national !evelo&ment an! social &rogress.> #t t$e same
time it relieves t$e central government o( t$e b%r!en o(
managing local a((airs an! enables it to concentrate on
national concerns. 2$e =resi!ent e4ercises ]general
s%&ervision> over t$em b%t onl' to ]ens%re t$at local a((airs
151
are a!ministere! accor!ing to la,.> He $as no control over
t$eir acts in t$e sense t$at $e can s%bstit%te t$eir
9%!gments ,it$ $is o,n.
DecentraliBation o( &o,er on t$e ot$er $an! involves an
ab!ication o( &olitical &o,er in t$e UsicV (avor o( local
governments UsicV %nits !eclare! to be a%tonomo%s. *n t$at
case t$e a%tonomo%s government is (ree to c$art its o,n
!estin' an! s$a&e its (%t%re ,it$ minim%m intervention
(rom central a%t$orities. #ccor!ing to a constit%tional
a%t$or !ecentraliBation o( &o,er amo%nts to ]sel(D
immolation> since in t$at event t$e a%tonomo%s
government becomes acco%ntable not to t$e central
a%t$orities b%t to its constit%enc'.
Local a%tonom' incl%!es bot$ a!ministrative an! (iscal
a%tonom'. 2$e (airl' recent case o( =imentel v. #g%irreU1CV
is &artic%larl' instr%ctive. 2$e Co%rt !eclare! t$erein t$at
local (iscal a%tonom' incl%!es t$e &o,er o( t$e LG@s to
inter alia allocate t$eir reso%rces in accor!ance ,it$ t$eir
o,n &riorities: @n!er e4isting la, local government %nits in
a!!ition to $aving a!ministrative a%tonom' in t$e e4ercise
o( t$eir (%nctions en9o' (iscal a%tonom' as ,ell. Fiscal
a%tonom' means t$at local governments $ave t$e &o,er to
create t$eir o,n so%rces o( reven%e in a!!ition to t$eir
e.%itable s$are in t$e national ta4es release! b' t$e
national government as ,ell as t$e &o,er to allocate t$eir
reso%rces in accor!ance ,it$ t$eir o,n &riorities. *t e4ten!s
to t$e &re&aration o( t$eir b%!gets an! local o((icials in t%rn
$ave to ,or+ ,it$in t$e constraints t$ereo(. 2$e' are not
(orm%late! at t$e national level an! im&ose! on local
governments ,$et$er t$e' are relevant to local nee!s an!
reso%rces or not.
F%rt$er a basic (eat%re o( local (iscal a%tonom' is t$e
constit%tionall' man!ate! a%tomatic release o( t$e s$ares
o( LG@s in t$e national internal reven%e. Follo,ing t$is
ratiocination t$e Co%rt in =imentel str%c+ !o,n as
%nconstit%tional )ection 0 o( #!ministrative Or!er ;#.O.< No.
17/ ,$ic$ or!ere! t$e ,it$$ol!ing e((ective 7an%ar' 1
1888 o( ten &ercent o( t$e LG@s> *-# E&en!ing t$e
assessment an! eval%ation b' t$e Develo&ment B%!get
Coor!inating Committee o( t$e emerging (iscal sit%ation.F
*n li+e manner t$e assaile! &rovisos in t$e G##s o( 1888
/555 an! /551 an! t$e OCD resol%tions constit%te a
E,it$$ol!ingF o( a &ortion o( t$e *-#. 2$e' &%t on $ol! t$e
!istrib%tion an! release o( t$e (ive billion &esos LG)3F an!
s%b9ect t$e same to t$e im&lementing r%les an! reg%lations
incl%!ing t$e g%i!elines an! mec$anisms &rescribe! b' t$e
Oversig$t Committee (rom time to time. Li+e )ection 0 o(
#.O. 17/ t$e assaile! &rovisos in t$e G##s o( 1888 /555
an! /551 an! t$e OCD resol%tions e((ectivel' encroac$ on
t$e (iscal a%tonom' en9o'e! b' t$e LG@s an! m%st be
str%c+ !o,n. 2$e' cannot t$ere(ore be %&$el!.
2$e assaile! &rovisos in t$e G##s o( 1888 /555 an! /551
an! t$e OCD resol%tions cannot amen! )ection /8C o( t$e
Local Government Co!e o( 1881 )ection /80 o( t$e Local
Government Co!e &rovi!es t$at beginning t$e t$ir! 'ear o(
its e((ectivit' t$e LG@s> s$are in t$e national internal
reven%e ta4es s$all be 05Y. 2$is &ercentage is (i4e! an!
ma' not be re!%ce! e4ce&t Ein t$e event t$e national
government inc%rs an %nmanageable &%blic sector !e(icit"
an! onl' %&on com&liance ,it$ stringent re.%irements set
(ort$ in t$e same section: )ec. /80. =rovi!e! 2$at in
t$e event t$at t$e national government inc%rs an
%nmanageable &%blic sector !e(icit t$e =resi!ent o( t$e
=$ili&&ines is $ereb' a%t$oriBe! %&on recommen!ation o(
)ecretar' o( Finance )ecretar' o( *nterior an! Local
Government an! )ecretar' o( B%!get an! Management an!
s%b9ect to cons%ltation ,it$ t$e &resi!ing o((icers o( bot$
Ho%ses o( Congress an! t$e &resi!ents o( t$e liga to ma+e
t$e necessar' a!9%stments in t$e internal reven%e allotment
o( local government %nits b%t in no case s$all t$e allotment
be less t$an t$irt' &ercent ;15Y< o( t$e collection o( t$e
national internal reven%e ta4es o( t$e t$ir! (iscal 'ear
&rece!ing t$e c%rrent (iscal 'earA =rovi!e! (%rt$er 2$at in
t$e (irst 'ear o( t$e e((ectivit' o( t$is Co!e t$e local
government %nits s$all in a!!ition to t$e t$irt' &ercent
;15Y< internal reven%e allotment ,$ic$ s$all incl%!e t$e
cost o( !evolve! (%nctions (or essential &%blic services be
entitle! to receive t$e amo%nt e.%ivalent to t$e cost o(
!evolve! &ersonnel services.
2$%s (rom t$e above &rovision t$e onl' &ossible e4ce&tion
to t$e man!ator' a%tomatic release o( t$e LG@s> *-# is i( t$e
national internal reven%e collections (or t$e c%rrent (iscal
'ear is less t$an 05 &ercent o( t$e collections o( t$e
&rece!ing t$ir! (iscal 'ear in ,$ic$ case ,$at s$o%l! be
150
a%tomaticall' release! s$all be a &ro&ortionate amo%nt o(
t$e collections (or t$e c%rrent (iscal 'ear. 2$e a!9%stment
ma' even be ma!e on a .%arterl' basis !e&en!ing on t$e
act%al collections o( national internal reven%e ta4es (or t$e
.%arter o( t$e c%rrent (iscal 'ear. *n t$e instant case
$o,ever t$ere is no allegation t$at t$e national internal
reven%e ta4 collections (or t$e (iscal 'ears 1888 /555 an!
/551 $ave (allen com&are! to t$e &rece!ing t$ree (iscal
'ears.
)ection /8C t$en s&eci(ies $o, t$e *-# s$all be allocate!
among t$e LG@s. Ho,ever t$is &ercentage s$aring is not
(ollo,e! ,it$ res&ect to t$e (ive billion &esos LG)3F as t$e
assaile! OCD resol%tions im&lementing t$e assaile!
&rovisos in t$e G##s o( 1888 /555 an! /551 &rovi!e! (or a
!i((erent s$aring sc$eme. For e4am&le (or 1888 =/ billion
o( t$e LG)3F ,as allocate! as (ollo,s: =rovinces X 05YA
Cities X /5YA M%nici&alities X 05Y.U18V For /555 =1.C billion
o( t$e LG)3F ,as allocate! in t$is manner: =rovinces X /GYA
Cities X /1YA M%nici&alities X 1CYA Baranga's X /GY.U05V
For /551 =1 billion o( t$e LG)3F ,as allocate! t$%s:
=rovinces X /CYA Cities X /CYA M%nici&alities X 1CYA
Baranga's X 1CY.U01V
2$e res&on!ents arg%e t$at t$is mo!i(ication is allo,e!
since t$e Constit%tion !oes not s&eci(' t$at t$e E9%st s$areF
o( t$e LG@s s$all onl' be !etermine! b' t$e Local
Government Co!e o( 1881. 2$at it is ,it$in t$e &o,er o(
Congress to enact ot$er la,s incl%!ing t$e G##s to
increase or !ecrease t$e E9%st s$areF o( t$e LG@s. 2$is
contention is %ntenable. 2$e Local Government Co!e o(
1881 is a s%bstantive la,. #n! ,$ile it is conce!e! t$at
Congress ma' amen! an' o( t$e &rovisions t$erein it ma'
not !o so t$ro%g$ a&&ro&riations la,s or G##s. #n'
amen!ment to t$e Local Government Co!e o( 1881 s$o%l!
be !one in a se&arate la, not in t$e a&&ro&riations la,
beca%se Congress cannot incl%!e in a general a&&ro&riation
bill matters t$at s$o%l! be more &ro&erl' enacte! in a
se&arate legislation. # general a&&ro&riations bill is a s&ecial
t'&e o( legislation ,$ose content is limite! to s&eci(ie!
s%ms o( mone' !e!icate! to a s&eci(ic &%r&ose or a
se&arate (iscal %nit.U01V #n' &rovision t$erein ,$ic$ is
inten!e! to amen! anot$er la, is consi!ere! an
Eina&&ro&riate &rovision.F 2$e categor' o( Eina&&ro&riate
&rovisionsF incl%!es %nconstit%tional &rovisions an!
&rovisions ,$ic$ are inten!e! to amen! ot$er la,s beca%se
clearl' t$ese +in!s o( la,s $ave no &lace in an
a&&ro&riations bill.
*ncreasing or !ecreasing t$e *-# o( t$e LG@s or mo!i('ing
t$eir &ercentage s$aring t$erein ,$ic$ are (i4e! in t$e
Local Government Co!e o( 1881 are matters o( general an!
s%bstantive la,. 2o &ermit Congress to %n!erta+e t$ese
amen!ments t$ro%g$ t$e G##s as t$e res&on!ents
conten! ,o%l! be to give Congress t$e %nbri!le! a%t$orit'
to %n!%l' in(ringe t$e (iscal a%tonom' o( t$e LG@s an! t$%s
&%t t$e same in 9eo&ar!' ever' 'ear. 2$is t$e Co%rt cannot
sanction.
*t is relevant to &oint o%t at t$is 9%nct%re t$at %nli+e t$ose
o( 1888 /555 an! /551 t$e G##s o( /55/ an! /551 !o not
contain &rovisos similar to t$e $erein assaile! &rovisos. *n
ot$er ,or!s t$e G##s o( /55/ an! /551 $ave not
earmar+e! an' amo%nt o( t$e *-# (or t$e LG)3F. Congress
$a! &er$a&s seen (it to !iscontin%e t$e &ractice as it
recogniBes its in(irmit'. Nonet$eless as earlier mentione!
t$is Co%rt $as !eeme! it necessar' to ma+e a !e(initive
r%ling on t$e matter in or!er to &revent its rec%rrence in
(%t%re a&&ro&riations la,s an! t$at t$e &rinci&les
en%nciate! $erein ,o%l! serve to g%i!e t$e benc$ bar an!
&%blic.
&eliciano v. COA
Facts: # )&ecial #%!it 2eam (rom CO# -egional O((ice No. K***
a%!ite! t$e acco%nts o( LM6D. )%bse.%entl' LM6D receive! a
letter (rom CO# !ate! 18 7%l' 1888 re.%esting &a'ment o( a%!iting
(ees. #s General Manager o( LM6D &etitioner sent a re&l' !ate!
1/ October 1888 in(orming CO#>s -egional Director t$at t$e ,ater
!istrict co%l! not &a' t$e a%!iting (ees. =etitioner cite! as basis (or
$is action )ections G an! /5 o( =resi!ential Decree 188 ;E=D 188F<
U/V as ,ell as )ection 18 o( -e&%blic #ct No. G7C8 ;E-# G7C8F<.
2$e -egional Director re(erre! &etitioner>s re&l' to t$e CO#
C$airman on 18 October 1888. On 18 October 1888 &etitioner
,rote CO# t$ro%g$ t$e -egional Director as+ing (or re(%n! o( all
a%!iting (ees LM6D &revio%sl' &ai! to CO#. On 1G Marc$ /555
&etitioner receive! CO# C$airman Celso D. Gangan>s -esol%tion
!ate! 1 7an%ar' /555 !en'ing $is re.%ests. =etitioner (ile! a
15C
motion (or reconsi!eration on 11 Marc$ /555 ,$ic$ CO# !enie! on
15 7an%ar' /551. On 11 Marc$ /551 &etitioner (ile! t$is instant
&etition. #ttac$e! to t$e &etition ,ere resol%tions o( t$e Kisa'as
#ssociation o( 6ater Districts ;K#6D< an! t$e =$ili&&ine
#ssociation o( 6ater Districts ;=#6D< s%&&orting t$e &etition.
*ss%e: 1. 6ON CO# $as t$e a%t$orit' to a%!it LM6D.
2$e Constit%tion an! e4isting la,sU0V man!ate CO# to a%!it
all government agencies incl%!ing governmentDo,ne! an!
controlle! cor&orations ;EGOCCsF< ,it$ original c$arters. #n
L6D is a GOCC ,it$ an original c$arter. )ection /;1< #rticle
*JDD o( t$e Constit%tion &rovi!es (or CO#>s a%!it 9%ris!iction
as (ollo,s: )3C2*ON /. ;1< 2$e Commission on #%!it s$all
$ave t$e &o,er a%t$orit' an! !%t' to e4amine a%!it an!
settle all acco%nts &ertaining to t$e reven%e an! recei&ts o(
an! e4&en!it%res or %ses o( (%n!s an! &ro&ert' o,ne! or
$el! in tr%st b' or &ertaining to t$e Government or an' o(
its s%b!ivisions agencies or instr%mentalities incl%!ing
governmentDo,ne! an! controlle! cor&orations ,it$ original
c$arters an! on a &ostDa%!it basis: ;a< constit%tional bo!ies
commissions an! o((ices t$at $ave been grante! (iscal
a%tonom' %n!er t$is Constit%tionA ;b< a%tonomo%s state
colleges an! %niversitiesA ;c< ot$er governmentDo,ne! or
controlle! cor&orations an! t$eir s%bsi!iariesA an! ;!< s%c$
nonDgovernmental entities receiving s%bsi!' or e.%it'
!irectl' or in!irectl' (rom or t$ro%g$ t$e government
,$ic$ are re.%ire! b' la, or t$e granting instit%tion to
s%bmit to s%c$ a%!it as a con!ition o( s%bsi!' or e.%it'.
Ho,ever ,$ere t$e internal control s'stem o( t$e a%!ite!
agencies is ina!e.%ate t$e Commission ma' a!o&t s%c$
meas%res incl%!ing tem&orar' or s&ecial &reDa%!it as are
necessar' an! a&&ro&riate to correct t$e !e(iciencies. *t
s$all +ee& t$e general acco%nts o( t$e Government an! (or
s%c$ &erio! as ma' be &rovi!e! b' la, &reserve t$e
vo%c$ers an! ot$er s%&&orting &a&ers &ertaining t$ereto.
2$e CO#>s a%!it 9%ris!iction e4ten!s not onl' to government
Eagencies or instr%mentalitiesF b%t also to EgovernmentD
o,ne! an! controlle! cor&orations ,it$ original c$artersF as
,ell as Eot$er governmentDo,ne! or controlle!
cor&orationsF ,it$o%t original c$arters.
/. 6ON L6Ds are GOCCs ,it$ original c$arters.
L6Ds are not &rivate cor&orations beca%se t$e' are not
create! %n!er t$e Cor&oration Co!e. L6Ds are not
registere! ,it$ t$e )ec%rities an! 34c$ange Commission.
)ection 10 o( t$e Cor&oration Co!e states t$at EU#Vll
cor&orations organiBe! %n!er t$is co!e s$all (ile ,it$ t$e
)ec%rities an! 34c$ange Commission articles o(
incor&oration 4 4 4.F L6Ds $ave no articles o(
incor&oration no incor&orators an! no stoc+$ol!ers or
members. 2$ere are no stoc+$ol!ers or members to elect
t$e boar! !irectors o( L6Ds as in t$e case o( all
cor&orations registere! ,it$ t$e )ec%rities an! 34c$ange
Commission. 2$e local ma'or or t$e &rovincial governor
a&&oints t$e !irectors o( L6Ds (or a (i4e! term o( o((ice.
2$is Co%rt $as r%le! t$at L6Ds are not create! %n!er t$e
Cor&oration Co!e t$%s: From t$e (oregoing &rono%ncement
it is clear t$at ,$at $as been e4cl%!e! (rom t$e coverage o(
t$e C)C are t$ose cor&orations create! &%rs%ant to t$e
Cor&oration Co!e. )igni(icantl' &etitioners are not create!
%n!er t$e sai! co!e b%t on t$e contrar' t$e' ,ere create!
&%rs%ant to a s&ecial la, an! are governe! &rimaril' b' its
&rovision.
L6Ds e4ist b' virt%e o( =D 188 ,$ic$ constit%tes t$eir
s&ecial c$arter. )ince %n!er t$e Constit%tion onl'
governmentDo,ne! or controlle! cor&orations ma' $ave
s&ecial c$arters L6Ds can vali!l' e4ist onl' i( t$e' are
governmentDo,ne! or controlle!. 2o claim t$at L6Ds are
&rivate cor&orations ,it$ a s&ecial c$arter is to a!mit t$at
t$eir e4istence is constit%tionall' in(irm. @nli+e &rivate
cor&orations ,$ic$ !erive t$eir legal e4istence an! &o,er
(rom t$e Cor&oration Co!e L6Ds !erive t$eir legal
e4istence an! &o,er (rom =D 188 ,$ic$ e4&ressl' con(ers
on L6Ds cor&orate &o,ers. )ection G o( =D 188 &rovi!es
t$at L6Ds Es$all e4ercise t$e &o,ers rig$ts an! &rivileges
given to &rivate cor&orations %n!er e4isting la,s.F 6it$o%t
=D 188 L6Ds ,o%l! $ave no cor&orate &o,ers. 2$%s =D
188 constit%tes t$e s&ecial enabling c$arter o( L6Ds. 2$e
inel%ctable concl%sion is t$at L6Ds are governmentDo,ne!
an! controlle! cor&orations ,it$ a s&ecial c$arter.
2$e &$rase EgovernmentDo,ne! an! controlle! cor&orations
,it$ original c$artersF means GOCCs create! %n!er s&ecial
la,s an! not %n!er t$e general incor&oration la,. 2$ere is
15G
no !i((erence bet,een t$e term Eoriginal c$artersF an!
Es&ecial c$arters.F
=etitioner>s contention t$at t$e )angg%niang Ba'an
resol%tion creates t$e L6Ds ass%mes t$at t$e )angg%niang
Ba'an $as t$e &o,er to create cor&orations. 2$is is a
&atentl' baseless ass%m&tion. 2$e Local Government
Co!eU17V !oes not vest in t$e )angg%niang Ba'an t$e
&o,er to create cor&orations.U18V 6$at t$e Local
Government Co!e em&o,ers t$e )angg%niang Ba'an to !o
is to &rovi!e (or t$e establis$ment o( a ,ater,or+s s'stem
Es%b9ect to e4isting la,s.F 2$%s )ection 007;C<;vii< o( t$e
Local Government Co!e &rovi!es: )3C2*ON 007.
=o,ers D%ties F%nctions an! Com&ensation. S ;a< 2$e
sangg%niang ba'an as t$e legislative bo!' o( t$e
m%nici&alit' s$all enact or!inances a&&rove resol%tions
an! a&&ro&riate (%n!s (or t$e general ,el(are o( t$e
m%nici&alit' an! its in$abitants &%rs%ant to )ection 1G o(
t$is Co!e an! in t$e &ro&er e4ercise o( t$e cor&orate &o,ers
o( t$e m%nici&alit' as &rovi!e! (or %n!er )ection // o( t$is
Co!e an! s$all: ;vii< )%b9ect to e4isting la,s &rovi!e
(or t$e establis$ment o&eration maintenance an! re&air o(
an e((icient ,ater,or+s s'stem to s%&&l' ,ater (or t$e
in$abitantsA reg%late t$e constr%ction maintenance re&air
an! %se o( $'!rants &%m&s cisterns an! reservoirsA &rotect
t$e &%rit' an! .%antit' o( t$e ,ater s%&&l' o( t$e
m%nici&alit' an! (or t$is &%r&ose e4ten! t$e coverage o(
a&&ro&riate or!inances over all territor' ,it$in t$e !rainage
area o( sai! ,ater s%&&l' an! ,it$in one $%n!re! ;155<
meters o( t$e reservoir con!%it canal a.%e!%ct &%m&ing
station or ,aters$e! %se! in connection ,it$ t$e ,ater
serviceA an! reg%late t$e cons%m&tion %se or ,astage o(
,aterA
2$e )angg%niang Ba'an ma' establis$ a ,ater,or+s s'stem
onl' in accor!ance ,it$ t$e &rovisions o( =D 188. 2$e
)angg%niang Ba'an $as no &o,er to create a cor&orate
entit' t$at ,ill o&erate its ,ater,or+s s'stem. Ho,ever
t$e )angg%niang Ba'an ma' avail o( e4isting enabling la,s
li+e =D 188 to (orm an! incor&orate a ,ater !istrict.
Besi!es even ass%ming (or t$e sa+e o( arg%ment t$at t$e
)angg%niang Ba'an $as t$e &o,er to create cor&orations
t$e L6Ds ,o%l! remain governmentDo,ne! or controlle!
cor&orations s%b9ect to CO#>s a%!it 9%ris!iction. 2$e
resol%tion o( t$e )angg%niang Ba'an ,o%l! constit%te an
L6D>s s&ecial c$arter ma+ing t$e L6D a governmentD
o,ne! an! controlle! cor&oration ,it$ an original c$arter.
*n an' event t$e Co%rt $as alrea!' r%le! in Bag%io 6ater
District v. 2ra9anoU18V t$at t$e )angg%niang Ba'an
resol%tion is not t$e s&ecial c$arter o( L6Ds t$%s: 6$ile it is
tr%e t$at a resol%tion o( a local sangg%nian is still necessar'
(or t$e (inal creation o( a !istrict t$is Co%rt is o( t$e o&inion
t$at sai! resol%tion cannot be consi!ere! as its c$arter t$e
same being inten!e! onl' to im&lement t$e &rovisions o(
sai! !ecree.
=etitioner (%rt$er conten!s t$at a la, m%st create !irectl'
an! e4&licitl' a GOCC in or!er t$at it ma' $ave an original
c$arter. *n s$ort &etitioner arg%es t$at one s&ecial la,
cannot serve as enabling la, (or several GOCCs b%t onl' (or
one GOCC. )ection 1G #rticle J** o( t$e Constit%tion
man!ates t$at ECongress s$all not e4ce&t b' general
la,FU/5V &rovi!e (or t$e creation o( &rivate cor&orations.
2$%s t$e Constit%tion &ro$ibits one s&ecial la, to create
one &rivate cor&oration re.%iring instea! a Egeneral la,F to
create &rivate cor&orations. *n contrast t$e same )ection
1G states t$at EGovernmentDo,ne! or controlle!
cor&orations ma' be create! or establis$e! b' s&ecial
c$arters.F 2$%s t$e Constit%tion &ermits Congress to
create a GOCC ,it$ a s&ecial c$arter. 2$ere is $o,ever no
&ro$ibition on Congress to create several GOCCs o( t$e
same class %n!er one s&ecial enabling c$arter.
2$e rationale be$in! t$e &ro$ibition on &rivate cor&orations
$aving s&ecial c$arters !oes not a&&l' to GOCCs. 2$ere is
no !anger o( creating s&ecial &rivileges to certain
in!ivi!%als (amilies or gro%&s i( t$ere is one s&ecial la,
creating eac$ GOCC. Certainl' s%c$ !anger ,ill not e4ist
,$et$er one s&ecial la, creates one GOCC or one s&ecial
enabling la, creates several GOCCs. 2$%s Congress ma'
create GOCCs eit$er b' s&ecial c$arters s&eci(ic to eac$
GOCC or b' one s&ecial enabling c$arter a&&licable to a
class o( GOCCs li+e =D 188 ,$ic$ a&&lies onl' to L6Ds.
=etitioner also conten!s t$at L6Ds are &rivate cor&orations
beca%se )ection G o( =D 188U/1V !eclares t$at L6Ds Es$all
be consi!ere! .%asiD&%blicF in nat%re. =etitioner>s rationale
is t$at onl' &rivate cor&orations ma' be !eeme! E.%asiD
&%blicF an! not &%blic cor&orations. =%t !i((erentl'
157
&etitioner rationaliBes t$at a &%blic cor&oration cannot be
!eeme! E.%asiD&%blicF beca%se s%c$ cor&oration is alrea!'
&%blic. =etitioner concl%!es t$at t$e term E.%asiD&%blicF
can onl' a&&l' to &rivate cor&orations. =etitioner>s
arg%ment is inconse.%ential.
=etitioner (orgets t$at t$e constit%tional criterion on t$e
e4ercise o( CO#>s a%!it 9%ris!iction !e&en!s on t$e
government>s o,ners$i& or control o( a cor&oration. 2$e
nat%re o( t$e cor&oration ,$et$er it is &rivate .%asiD&%blic
or &%blic is immaterial.
2$e Constit%tion vests in t$e CO# a%!it 9%ris!iction over
EgovernmentDo,ne! an! controlle! cor&orations ,it$
original c$artersF as ,ell as EgovernmentDo,ne! or
controlle! cor&orationsF ,it$o%t original c$arters. GOCCs
,it$ original c$arters are s%b9ect to CO# &reDa%!it ,$ile
GOCCs ,it$o%t original c$arters are s%b9ect to CO# &ostD
a%!it. GOCCs ,it$o%t original c$arters re(er to cor&orations
create! %n!er t$e Cor&oration Co!e b%t are o,ne! or
controlle! b' t$e government. 2$e nat%re or &%r&ose o( t$e
cor&oration is not material in !etermining CO#>s a%!it
9%ris!iction. Neit$er is t$e manner o( creation o( a
cor&oration ,$et$er %n!er a general or s&ecial la,.
2$e !etermining (actor o( CO#>s a%!it 9%ris!iction is
government o,ners$i& or control o( t$e cor&oration. *n
=$ili&&ine Keterans Ban+ 3m&lo'ees @nionDN@B3 v.
=$ili&&ine Keterans Ban+U//V t$e Co%rt even r%le! t$at t$e
criterion o( o,ners$i& an! control is more im&ortant t$an
t$e iss%e o( original c$arter t$%s:
2$is &oint is im&ortant beca%se t$e Constit%tion &rovi!es in
its #rticle *JDB )ection /;1< t$at Et$e Civil )ervice embraces
all branc$es s%b!ivisions instr%mentalities an! agencies o(
t$e Government incl%!ing governmentDo,ne! or controlle!
cor&orations ,it$ original c$arters.F #s t$e Ban+ is not
o,ne! or controlle! b' t$e Government alt$o%g$ it !oes
$ave an original c$arter in t$e (orm o( -.#. No. 1C18U/1V it
clearl' !oes not (all %n!er t$e Civil )ervice an! s$o%l! be
regar!e! as an or!inar' commercial cor&oration. )ection /8
o( t$e sai! la, so &rovi!es. 2$e conse.%ence is t$at t$e
relations o( t$e Ban+ ,it$ its em&lo'ees s$o%l! be governe!
b' t$e labor la,s %n!er ,$ic$ in (act t$e' $ave alrea!'
been &ai! some o( t$eir claims.
Certainl' t$e government o,ns an! controls L6Ds. 2$e
government organiBes L6Ds in accor!ance ,it$ a s&eci(ic
la, =D 188. 2$ere is no &rivate &art' involve! as coDo,ner
in t$e creation o( an L6D. 7%st &rior to t$e creation o(
L6Ds t$e national or local government o,ns an! controls
all t$eir assets. 2$e government controls L6Ds beca%se
%n!er =D 188 t$e m%nici&al or cit' ma'or or t$e &rovincial
governor a&&oints all t$e boar! !irectors o( an L6D (or a
(i4e! term o( si4 'ears.U/0V 2$e boar! !irectors o( L6Ds are
not coDo,ners o( t$e L6Ds. L6Ds $ave no &rivate
stoc+$ol!ers or members. 2$e boar! !irectors an! ot$er
&ersonnel o( L6Ds are government em&lo'ees s%b9ect to
civil service la,sU/CV an! antiDgra(t la,s.
6$ile )ection 8 o( =D 188 states t$at EUNVo &%blic o((icial
s$all serve as !irectorF o( an L6D it onl' means t$at t$e
a&&ointees to t$e boar! o( !irectors o( L6Ds s$all come
(rom t$e &rivate sector. Once s%c$ &rivate sector
re&resentatives ass%me o((ice as !irectors t$e' become
&%blic o((icials governe! b' t$e civil service la, an! antiD
gra(t la,s. Ot$er,ise )ection 8 o( =D 188 ,o%l!
contravene )ection /;1< #rticle *JDB o( t$e Constit%tion
!eclaring t$at t$e civil service incl%!es EgovernmentDo,ne!
or controlle! cor&orations ,it$ original c$arters.F
*( L6Ds are neit$er GOCCs ,it$ original c$arters nor GOCCs
,it$o%t original c$arters t$en t$e' ,o%l! (all %n!er t$e
term Eagencies or instr%mentalitiesF o( t$e government an!
t$%s still s%b9ect to CO#>s a%!it 9%ris!iction. Ho,ever t$e
star+ an! %n!eniable (act is t$at t$e government o,ns
L6Ds. )ection 0CU/7V o( =D 188 recogniBes government
o,ners$i& o( L6Ds ,$en )ection 0C states t$at t$e boar! o(
!irectors ma' !issolve an L6D onl' on t$e con!ition t$at
Eanot$er &%blic entit' $as ac.%ire! t$e assets o( t$e !istrict
an! $as ass%me! all obligations an! liabilities attac$e!
t$ereto.F 2$e im&lication is clear t$at an L6D is a &%blic
an! not a &rivate entit'.
=etitioner !oes not allege t$at some entit' ot$er t$an t$e
government o,ns or controls L6Ds. *nstea! &etitioner
a!vances t$e t$eor' t$at t$e E6ater District>s o,ner is t$e
District itsel(.FU/8V #ss%ming (or t$e sa+e o( arg%ment t$at
an L6D is Esel(Do,ne!FU/8V as &etitioner !escribes an L6D
t$e government in an' event controls all L6Ds. First
government o((icials a&&oint all L6D !irectors to a (i4e!
158
term o( o((ice. )econ! an' &er !iem o( L6D !irectors in
e4cess o( =C5 is s%b9ect to t$e a&&roval o( t$e Local 6ater
@tilities #!ministration an! !irectors can receive no ot$er
com&ensation (or t$eir services to t$e L6D.U15V 2$ir! t$e
Local 6ater @tilities #!ministration can re.%ire L6Ds to
merge or consoli!ate t$eir (acilities or o&erations.U11V 2$is
element o( government control s%b9ects L6Ds to CO#>s
a%!it 9%ris!iction.
=etitioner arg%es t$at %&on t$e enactment o( =D 188 L6Ds
became &rivate entities t$ro%g$ t$e trans(er o( o,ners$i& o(
,ater (acilities (rom local government %nits to t$eir
res&ective ,ater !istricts as man!ate! b' =D 188.
=etitioner is gras&ing at stra,s. =rivatiBation involves t$e
trans(er o( government assets to a &rivate entit'. =etitioner
conce!es t$at t$e o,ner o( t$e assets trans(erre! %n!er
)ection G ;c< o( =D 188 is no ot$er t$an t$e L6D itsel(.U1/V
2$e trans(er o( assets man!ate! b' =D 188 is a trans(er o(
t$e ,ater s'stems (acilities Emanage! o&erate! b' or %n!er
t$e control o( s%c$ cit' m%nici&alit' or &rovince to s%c$
;,ater< !istrict.FU11V *n s$ort t$e trans(er is (rom one
government entit' to anot$er government entit'. =D 188 is
bere(t o( an' in!ication t$at t$e trans(er is to &rivatiBe t$e
o&eration an! control o( ,ater s'stems.
Finall' &etitioner claims t$at even on t$e ass%m&tion t$at
t$e government o,ns an! controls L6Ds )ection /5 o( =D
188 &revents CO# (rom a%!iting L6Ds. U10V )ection /5 o(
=D 188 &rovi!es: )ec. /5. )'stem o( B%siness
#!ministration. S 2$e Boar! s$all as soon as &racticable
&rescribe an! !e(ine b' resol%tion a s'stem o( b%siness
a!ministration an! acco%nting (or t$e !istrict ,$ic$ s$all be
&atterne! %&on an! con(orm to t$e stan!ar!s establis$e!
b' t$e #!ministration. #%!iting s$all be &er(orme! b' a
certi(ie! &%blic acco%ntant not in t$e government service.
2$e #!ministration ma' $o,ever con!%ct ann%al a%!its o(
t$e (iscal o&erations o( t$e !istrict to be &er(orme! b' an
a%!itor retaine! b' t$e #!ministration. 34&enses inc%rre!
in connection t$ere,it$ s$all be borne e.%all' b' t$e ,ater
!istrict concerne! an! t$e #!ministration.
=etitioner arg%es t$at =D 188 e4&ressl' &ro$ibits CO#
a%!itors or an' government a%!itor (or t$at matter (rom
a%!iting L6Ds. =etitioner asserts t$at t$is is t$e im&ort o(
t$e secon! sentence o( )ection /5 o( =D 188 ,$en it states
t$at EU#V%!iting s$all be &er(orme! b' a certi(ie! &%blic
acco%ntant not in t$e government service.F
=D 188 cannot &revail over t$e Constit%tion. No amo%nt o(
clever legislation can e4cl%!e GOCCs li+e L6Ds (rom CO#>s
a%!it 9%ris!iction. )ection 1 #rticle *JDC o( t$e Constit%tion
o%tla,s an' sc$eme or !evise to esca&e CO#>s a%!it
9%ris!iction t$%s: )ec. 1. No la, s$all be &asse!
e4em&ting an' entit' o( t$e Government or its s%bsi!iar' in
an' g%ise ,$atever or an' investment o( &%blic (%n!s (rom
t$e 9%ris!iction o( t$e Commission on #%!it.
2$e (ramers o( t$e Constit%tion a!!e! )ection 1 #rticle *JDD
o( t$e Constit%tion &recisel' to ann%l &rovisions o(
=resi!ential Decrees li+e t$at o( )ection /5 o( =D 188 t$at
e4em&t GOCCs (rom CO# a%!it.
2$ere is an irreconcilable con(lict bet,een t$e secon!
sentence o( )ection /5 o( =D 188 &ro$ibiting CO# a%!itors
(rom a%!iting L6Ds an! )ections /;1< an! 1 #rticle *JDD o(
t$e Constit%tion vesting in CO# t$e &o,er to a%!it all
GOCCs. 6e r%le t$at t$e secon! sentence o( )ection /5 o(
=D 188 is %nconstit%tional since it violates )ections /;1< an!
1 #rticle *JDD o( t$e Constit%tion.
/. 6ON t$e CO# ma' &ro&erl' c$arge a%!iting (ees.
)ection 18 o( -# G7C8 &ro$ibits CO# &ersonnel (rom
receiving an' +in! o( com&ensation (rom an' government
entit' e4ce&t Ecom&ensation &ai! !irectl' b' CO# o%t o( its
a&&ro&riations an! contrib%tions.F 2$%s -# G7C8 itsel(
recogniBes an e4ce&tion to t$e stat%tor' ban on CO#
&ersonnel receiving com&ensation (rom GOCCs. *n 2e9a!a
v. DomingoU05V t$e Co%rt !eclare!: 2$ere can be no
.%estion t$at )ection 18 o( -e&%blic #ct No. G7C8 is
!esigne! to strengt$en (%rt$er t$e &olic' 4 4 4 to &reserve
t$e in!e&en!ence an! integrit' o( t$e CO# b' e4&licitl'
=-OH*B*2*NG: ;1< CO# o((icials an! em&lo'ees (rom
receiving salaries $onoraria bon%ses allo,ances or ot$er
emol%ments (rom an' government entit' local government
%nit GOCCs an! government (inancial instit%tions e4ce&t
s%c$ com&ensation &ai! !irectl' b' t$e CO# o%t o( its
a&&ro&riations an! contrib%tions an! ;/< government
entities incl%!ing GOCCs government (inancial instit%tions
an! local government %nits (rom assessing or billing ot$er
government entities GOCCs government (inancial
instit%tions or local government %nits (or services ren!ere!
158
b' t$e latter>s o((icials an! em&lo'ees as &art o( t$eir
reg%lar (%nctions (or &%r&oses o( &a'ing a!!itional
com&ensation to sai! o((icials an! em&lo'ees. 2$e (irst
as&ect o( t$e strateg' is !irecte! to t$e CO# itsel( ,$ile t$e
secon! as&ect is a!!resse! !irectl' against t$e GOCCs an!
government (inancial instit%tions. @n!er t$e (irst CO#
&ersonnel assigne! to a%!iting %nits o( GOCCs or
government (inancial instit%tions can receive onl' s%c$
salaries allo,ances or (ringe bene(its &ai! !irectl' b' t$e
CO# o%t o( its a&&ro&riations an! contrib%tions. 2$e
contrib%tions re(erre! to are t$e cost o( a%!it services
earlier mentione! ,$ic$ cannot incl%!e t$e e4tra
emol%ments or bene(its no, claime! b' &etitioners. 2$e
CO# is (%rt$er barre! (rom assessing or billing GOCCs an!
government (inancial instit%tions (or services ren!ere! b' its
&ersonnel as &art o( t$eir reg%lar a%!it (%nctions (or
&%r&oses o( &a'ing a!!itional com&ensation to s%c$
&ersonnel
*n 2e9a!a t$e Co%rt e4&laine! t$e meaning o( t$e ,or!
Econtrib%tionsF in )ection 18 o( -# G7C8 ,$ic$ allo,s CO#
to c$arge GOCCs t$e cost o( its a%!it services: t$e
contrib%tions (rom t$e GOCCs are limite! to t$e cost o( a%!it
services ,$ic$ are base! on t$e act%al cost o( t$e a%!it
(%nction in t$e cor&oration concerne! &l%s a reasonable rate
to cover over$ea! e4&enses. 2$e act%al a%!it cost s$all
incl%!e &ersonnel services maintenance an! ot$er
o&erating e4&enses !e&reciation on ca&ital an! e.%i&ment
an! o%tDo(D&oc+et e4&enses. *n res&ect to t$e allo,ances
an! (ringe bene(its grante! b' t$e GOCCs to t$e CO#
&ersonnel assigne! to t$e (ormer>s a%!iting %nits t$e same
s$all be !irectl' !e(ra'e! b' CO# (rom its o,n
a&&ro&riations.
CO# ma' c$arge GOCCs Eact%al a%!it costF b%t GOCCs m%st
&a' t$e same !irectl' to CO# an! not to CO# a%!itors.
=etitioner $as not allege! t$at CO# c$arges L6Ds a%!iting
(ees in e4cess o( CO#>s Eact%al a%!it cost.F Neit$er $as
&etitioner allege! t$at t$e a%!iting (ees are &ai! b' L6Ds
!irectl' to in!ivi!%al CO# a%!itors. 2$%s &etitioner>s
contention m%st (ail.
115
(an *iego v. Municipalit# o! ,au3an- Oriental Minoro
Facts: 2$e m%nici&alit' o( Na%9an iss%e! -esol%tion 0G a,ar!ing
t$e concession o( t$e B%tas -iver an! t$e Na%9an La+e to )an
Diego. Contract: C 'ears (rom 7an%ar' 1 1808 to December 11
18C/ lease o( "t$e e4cl%sive &rivilege o( erecting (is$ corrals along
t$e B%tas -iver beginning (rom its 9%nction ,it$ t$e )an #g%stin
-iver %& to t$e Na%9an La+e itsel(" (or ann%al rental o( =/G155.55.
@&on &etition b' t$e lessee $o,ever t$e sai! co%ncil re!%ce! t$e
ann%al rental b' /5Y b' virt%e o( -esol%tion C8 series o( 1808. On
)e&tember C 18C5 t$e lessee re.%este! (or a (iveD'ear e4tension
o( t$e original lease &erio!. 2$e re.%est ,as (or some time le(t
&en!ing be(ore t$e m%nici&al co%ncil b%t on December 1 18C1
a(ter t$e lessee $a! reiterate! $is &etition (or e4tension (or t$e
reason t$at t$e t'&$oon "6an!a" ,$ic$ too+ &lace t$at mont$
!estro'e! most o( $is (is$ corrals t$e co%ncil a!o&te! -esol%tion
/// series o( 18C1 e4ten!ing t$e lease (or anot$er (ive ;C< 'ears
beginning 7an%ar' 1 18C/ ,it$ t$e e4&ress con!ition t$at t$e
&lainti(( ,o%l! ,aive t$e &rivilege to see+ (or re!%ction o( t$e
amo%nt o( rent ,$ic$ ,as to be base! on t$e original contract.
#(ter t$e resol%tion $a! been a&&rove! b' t$e =rovincial Boar! o(
Oriental Min!oro t$e lessor an! t$e lessee on December /1 18C1
contracte! (or t$e e4tension o( t$e &erio! o( t$e lease. 2$e contract
,as a&&rove! an! con(irme! on December /8 18C1 b' -esol%tion
//8 series o( 18C1 o( t$e m%nici&al co%ncil o( Na%9an ,$ose term
,as t$en abo%t to e4&ire. =%rs%ant to t$e sai! contract t$e lessee
(ile! a s%ret' bon! o( =C/555.55 an! t$en reconstr%cte! $is (is$
corrals an! stoc+e! t$e Na%9an La+e ,it$ baRg%s (ingerlings.
On 7an%ar' / 18C/ t$e m%nici&al co%ncil o( Na%9an t$is time
com&ose! o( a ne, set o( members a!o&te! -esol%tion 1 series o(
18C/ revo+ing -esol%tion /// series o( 18C1. On t$e same !ate
t$e ne, co%ncil also &asse! -esol%tion 11 revo+ing -esol%tion //8
o( t$e ol! co%ncil ,$ic$ con(irme! t$e e4tension o( t$e lease
&erio!. 2$e lessee re.%este! (or reconsi!eration an! recall o(
-esol%tion 1 on t$e gro%n! among ot$ers t$at it violate! t$e
contract e4ec%te! bet,een $im an! t$e m%nici&alit' on December
/1 18C1 an! t$ere(ore contrar' to #rticle *** section 1 cla%se 15
o( t$e Constit%tion. 2$e re.%est $o,ever ,as not grante!.
On )e&tember 0 18C/ t$e lessee instit%te! t$is &rocee!ings in t$e
co%rt belo, see+ing to $ave -esol%tion 1 series o( 18C/ o( t$e
m%nici&al co%ncil o( Na%9an !eclare! n%ll an! voi! (or being
%nconstit%tional an! &ra'ing (or an or!er en9oining t$e !e(en!ant
m%nici&alit' (rom con!%cting a &%blic bi!!ing (or t$e leasing o( t$e
Na%9an (is$eries to an' &erson ot$er t$an t$e &lainti(( !%ring t$e
&erio! (rom 7an%ar' 1 18C1 to December 11 18C7.
#ns,ering t$e com&laint t$e !e(en!ant asserte! t$e vali!it' o(
-esol%tion 1 series o( 18C1 alleging b' t$e ,a' o( s&ecial !e(ense
t$at t$e resol%tion a%t$oriBing t$e original lease contract re!%cing
t$e lease rentals an! rene,ing t$e lease are n%ll an! voi! (or not
$aving been &asse! in accor!ance ,it$ la,. De(en!ant (%rt$er &%t
%& a co%nterclaim (or t$e amo%nt re&resenting t$e illegal re!%ction
o( /5Y o( t$e original rentals &l%s t$e s%m o( =/181.G5 &er mont$
beginning December 1 18C/ %ntil t$e case s$all $ave been
terminate!. #(ter trial t$e lo,er co%rt ren!ere! 9%!gment
%&$ol!ing t$e vali!it' o( t$e lease contract as ,ell at is e4tension
an! !eclaring -esol%tion 1 series o( 18C/ n%ll an! voi!. 2$e
m%nici&alit' o( Na%9an $as ta+en t$is a&&eal.
*ss%e: 6ON -esol%tion No. 1 series o( 18C/ revo+ing -esol%tion
/// series o( 18C1 o( t$e m%nici&al co%ncil o( Na%9an is vali!.
2$e la, ;)ec. /1/1 o( t$e -evise! #!ministrative Co!e<
re.%ires t$at ,$en t$e e4cl%sive &rivilege o( (is$er' or t$e
rig$t to con!%ct a (is$Dbree!ing gro%n! is grante! to a
&rivate &art' t$e same s$all be let to t$e $ig$est bi!!er in
t$e same manner as is being !one in e4&loiting a (err' a
mar+et or a sla%g$ter$o%se belonging to t$e m%nici&alit'.
2$e re.%irement o( com&etitive bi!!ing is (or t$e &%r&ose o(
inviting com&etition an! to g%ar! against (avoritism (ra%!
an! corr%&tion in t$e letting o( (is$er' &rivileges
2$ere is no !o%bt t$at t$e original lease contract in t$is case
,as a,ar!e! to t$e $ig$est bi!!er b%t t$e re!%ction o( t$e
111
rental an! t$e e4tension o( t$e term o( t$e lease a&&ear to
$ave been grante! ,it$o%t &revio%s &%blic bi!!ing.
Calte4 ;=$il.< *nc. et al. vs. Delga!o Bros. *nc.:t$e
amen!ment to an arrastre contract ,as !eclare! n%ll an!
voi! on t$e gro%n! t$at it ,as ma!e ,it$o%t &revio%s &%blic
bi!!ing. *n so !eclaring t$is Co%rt $as a!o&te! t$e (ollo,ing
o&inion:. . . it is t$e o&inion o( t$e Co%rt t$at t$e sai!
agreement .. e4ec%te! an! entere! into ,it$o%t &revio%s
&%blic bi!!ing is n%ll an! voi! an! cannot a!versel' a((ect
t$e rig$ts o( t$ir! &arties . . . an! o( t$e &%blic in general.
2$e Co%rt agrees ,it$ t$e contention o( co%nsel (or t$e
&lainti((s t$at t$e !%e e4ec%tion o( a contract a(ter &%blic
bi!!ing is a limitation %&on t$e rig$t o( t$e contra!icting
&arties to alter or amen! it ,it$o%t anot$er &%blic bi!!ing
(or ot$er,ise ,$at ,o%l! a &%blic bi!!ing be goo! (or i(
a(ter t$e e4ec%tion o( a contract a(ter &%blic bi!!ing t$e
contracting &arties ma' alter or amen! t$e contract or even
cancel it at t$eir ,illT =%blic bi!!ings are $el! (or t$e
&rotection o( t$e &%blic an! to give t$e &%blic t$e best
&ossible a!vantages b' means o( o&en com&etition bet,een
t$e bi!!ers. He ,$o bi!s or o((ers t$e best terms is a,ar!e!
t$e contract s%b9ect o( t$e bi! an! it is obvio%s t$at s%c$
&rotection an! best &ossible a!vantages to t$e &%blic ,ill
!isa&&ear i( t$e &arties to a contract e4ec%te! a(ter &%blic
bi!!ing ma' alter or amen! it ,it$o%t anot$er &revio%s
&%blic bi!!ing.
6$ile in t$at case ,e r%le! t$at alt$o%g$ t$e "arrastre
contract" t$erein .%estione! a%t$oriBe! t$e &arties to alter
or amen! an' o( t$e terms t$ereo( s%c$ a%t$orit' m%st be
consi!ere! as being s%b9ect to t$e re.%irement o( &revio%s
&%blic bi!!ing a (ormalit' observe! be(ore t$e original
contract ,as a,ar!e! ,it$ more reason s$o%l! t$e r%le
re.%iring s%c$ &%blic bi!!ing be stric+l' a&&lie! in t$e
instant case ,$ere no s%c$ a%t$orit' to alter or amen! t$e
terms o( t$e contract ,as reserve!.
F%rt$ermore it $as been r%le! t$at stat%tes re.%iring &%blic
bi!!ing a&&l' to amen!ments o( an' contract alrea!'
e4ec%te! in com&liance ,it$ t$e la, ,$ere s%c$
amen!ments alter t$e original contract in some vital an!
essential &artic%lar *nasm%c$ as t$e &erio! in a lease is a
vital an! essential &artic%lar to t$e contract ,e believe t$at
t$e e4tension o( t$e lease &erio! in t$is case ,$ic$ ,as
grante! ,it$o%t t$e essential re.%isite o( &%blic bi!!ing is
not in accor!ance ,it$ la,. #n! it (ollo,s t$e -esol%tion
/// series o( 18C1 an! t$e contract a%t$oriBe! t$ereb'
e4ten!ing t$e original (iveD'ear lease to anot$er (ive 'ears
are n%ll an! voi! as contrar' to la, an! &%blic &olic'.
6e agree ,it$ t$e !e(en!antDa&&ellant in t$at t$e .%estion
-esol%tion 1 is not an im&airment o( t$e obligation o(
contract beca%se t$e constit%tional &rovision on
im&airment re(ers onl' to contract legall' e4ec%te!. 6$ile
a&&arentl' -esol%tion 1 ten!e! to abrogate t$e contract
e4ten!ing t$e lease legall' s&ea+ing t$ere ,as no contract
abrogate! beca%se as ,e $ave sai! t$e e4tension contract
is voi! an! ine4istent.
2$e lo,er co%rt in $ol!ing t$at t$e !e(en!antDa&&ellant
m%nici&alit' $as been esto&&e! (rom assailing t$e vali!it' o(
t$e contract into ,$ic$ it entere! on December /1 18C1
seems to $ave overloo+e! t$e general r%le t$at S. . . t$e
!octrine o( esto&&el cannot be a&&lie! as against a
m%nici&al cor&oration to vali!ate a contract ,$ic$ it $as no
&o,er to ma+e or ,$ic$ it is a%t$oriBe! to ma+e onl' %n!er
&rescribe! con!itions ,it$in &rescribe! limitations or in a
&rescribe! mo!e or manner alt$o%g$ t$e cor&oration $as
acce&te! t$e bene(its t$ereo( an! t$e ot$er &art' $as (%ll'
&er(orme! $is &art o( t$e agreement or $as e4&en!e! large
s%ms in &re&aration (or &er(ormance. # reason (re.%entl'
assigne! (or t$is r%le is t$at to a&&l' t$e !octrine o(
esto&&el against a m%nici&alit' in s%c$ case ,o%l! be to
enable it to !o in!irectl' ,$at it cannot !o !irectl'. #lso
,$ere a contract is violative o( &%blic &olic' t$e
m%nici&alit' e4ec%ting it cannot be esto&&e! to assert t$e
invali!it' o( a contract ,$ic$ $as ce!e! a,a' controlle! or
embarrasse! its legislative or government &o,ers.
#s &ointe! o%t above "&%blic bi!!ings are $el! (or t$e best
&rotection o( t$e &%blic an! to give t$e &%blic t$e best
&ossible a!vantages b' means o( o&en com&etition bet,een
t$e bi!!ers." 2$%s contracts re.%iring &%blic bi!!ing a((ect
&%blic interest an! to c$ange t$em ,it$o%t com&l'ing ,it$
t$at re.%irement ,o%l! in!ee! be against &%blic &olic'.
2$ere is t$ere(ore not$ing to &lainti((Da&&elleeHs contention
t$at t$e &arties in t$is case being in &ari !elicto s$o%l! be
le(t in t$e sit%ation ,$ere t$e' are (o%n! (or "alt$o%g$ t$e
&arties are in &ari !elicto 'et t$e co%rt ma' inter(ere an!
11/
grant relie( at t$e s%it o( one o( t$em ,$ere &%blic &olic'
re.%ires its intervention even t$o%g$ t$e res%lt ma' be t$at
a bene(it ,ill be !erive! b' a &lainti(( ,$o is in e.%al g%ilt
,it$ !e(en!ant. B%t $ere t$e g%ilt o( t$e &arties is not
consi!ere! as e.%al to t$e $ig$er rig$t o( t$e &%blic an! t$e
g%ilt' &art' to ,$om t$e relie( is grante! is sim&l' t$e
instr%ment b' ,$ic$ t$e &%blic is serve!."
*n vie, o( t$e (oregoing ,e $ol! t$at t$e m%nici&al co%ncil
o( Na%9an acte! arig$t in a!o&ting -esol%tion 1 series o(
18C/ no, in .%estion. *n consonance ,it$ t$e &rinci&les
en%nciate! above -esol%tion C8 series o( 1807 re!%cing
t$e rentals b' /5Y o( t$e original &rice ,$ic$ ,as also
&asse! ,it$o%t &%blic bi!!ing s$o%l! li+e,ise be $el! voi!
since a re!%ction o( t$e rental to be &ai! b' t$e lessee is a
s%bstantial alternation in t$e contract ma+ing it a !istinct
an! !i((erent lease contract ,$ic$ re.%ires t$e &rescribe!
(ormalit' o( &%blic bi!!ing.
2$ere seems to be no necessit' o( &assing on t$e vali!it' o(
-esol%tion 0G series o( 1807 (or !e(en!antDa&&ellant
a&&arentl' !i! not mean to $ave it ann%lle! as ma' be
seen (rom its &ra'er in t$e co%rt belo, an! also in t$is
a&&eal. #t an' rate t$e vali!it' o( sai! resol%tion !oes not
alter o%r (in!ing to t$e e((ect t$at -esol%tion C8 series o(
1808 an! -esol%tion /// series o( 18C1 are illegal an!
voi!A an! t$at -esol%tion 1 series o( 18C/ is vali!.
Rivera v. Municipalit# o! Malolos
Facts: )ometime in #%g%st 1808 t$e m%nici&alit' o( Malolos
B%lacan calle! (or bi!s (or t$e s%&&l' o( roa! constr%ction
materials to re&air t$e roa!s o( t$e m%nici&alit'. #t t$e &%blic
bi!!ing $el! on /8 #%g%st 1808 (or t$at &%r&ose t$e -iveraHs bi!
,as t$e lo,est. On t$e same !a' /8 #%g%st 1808 t$e acting
m%nici&al treas%rer in(orme! t$e &etitioner t$at t$e contract $a!
been a,ar!e! to $im an! re.%este! $im to call at $is o((ice (or t$e
e4ec%tion o( t$e contract. On 11 #%g%st 1808 t$e contract ,as
signe! b' t$e m%nici&al ma'or in be$al( o( t$e m%nici&alit' an! t$e
&etitioner. *t ,as sti&%late! t$at (or an! in consi!eration o( t$e s%m
o( =18/1C t$e &etitioner ,as to (%rnis$ an! !eliver to t$e
m%nici&alit' o( Malolos /755 c%bic meters o( cr%s$e! a!obe stone
;casca9o< an! 1055 c%bic meters o( gravel. *n com&liance ,it$ t$e
contract t$e &etitioner !elivere! cr%s$e! a!obe stone an! gravel
to t$e m%nici&alit' at t$e &laces !esignate! b' t$e m%nici&al
ma'or. On /8 7%l' 18C5 t$e &etitioner ,rote to t$e m%nici&al
treas%rer t$ro%g$ t$e &rovincial a%!itor calling $is attention to t$e
(act t$at t$e s%m o( =18118.CG !%e $im as &a'ment (or t$e val%e
o( cr%s$e! a!obe stone an! gravel !elivere! to t$e m%nici&alit'
$a! not 'et been &ai! an! t$at as t$e (iscal 'ear 1808D18C5 $a!
alrea!' e4&ire! $e re.%este! t$at t$e s%m be incl%!e! in t$e
a&&ro&riations (or t$e incoming (iscal 'ear 18C5D18C1 as an
o%tstan!ing obligation. On / #%g%st 18C5 t$e &rinci&al cler+
acting in be$al( o( t$e m%nici&al treas%rer in(orme! t$e &etitioner
t$at "2$e M%nici&al Co%ncil ;$a!< agree! to &%t sai! amo%nt as
stan!ing obligation o( t$e m%nici&alit' a%t$oriBing &a'ment an!
a%t$oriBing t$e M%nici&al 2reas%rer to &a' as soon as (%n!s are
available." On 1G October 18C1 t$e m%nici&al co%ncil &asse!
-esol%tion No. G8 rati('ing t$e &%blic bi!!ing calle! b' t$e
m%nici&al treas%rer (or t$e s%&&l' o( roa! constr%ction materials
an! t$e contract entere! into b' t$e m%nici&al ma'or in be$al( o(
t$e m%nici&alit' on 11 #%g%st 1808. On 15 October 18C1 t$e
&etitioner (ile! a com&laint against t$e m%nici&alit' o( Malolos in
t$e Co%rt o( First *nstance o( B%lacan to collect t$e s%m o( =18/1C
(or t$e val%e o( cr%s$e! a!obe stone an! gravel !elivere! b' t$e
&etitioner %n!er t$e contract. On 8 Ma' 18C/ t$e &etitioner
amen!e! $is com&laint. On 8 7an%ar' 18C0 t$e Co%rt !ismisse! t$e
case ,it$o%t &re9%!ice. On 11 7an%ar' 18C0 t$e &etitioner so%g$t
t$e intervention o( t$e =resi!ential Com&laints an! #ction
Committee ,$ic$ (or,ar!e! t$e &etitionerHs claim t$ro%g$ &ro&er
c$annels to t$e O((ice o( t$e #%!itor General. On 10 7an%ar' 18CC
t$e De&%t' #%!itor General !enie! t$e &etitionerHs claim on t$e
gro%n! t$at as t$ere ,as no s%m o( mone' a&&ro&riate! to meet
t$e obligation inc%rre! be(ore t$e e4ec%tion o( t$e contract as
re.%ire! b' section G57 o( t$e -evise! #!ministrative Co!e t$e
sai! contract is voi! as &rovi!e! in section G58 o( t$e same Co!eA
an! t$at even i( t$ere ,as s%c$ s%m a&&ro&riate! to meet s%c$
obligation t$e allege! !eliveries o( cr%s$e! a!obe stone an! gravel
co%l! no longer be veri(ie! b' t$e =rovincial #%!itor o( B%lacan or
$is re&resentative. On 1 Marc$ 18CC t$e &etitioner re.%este! t$e
De&%t' #%!itor General to reconsi!er $is !ecision. On C Marc$
18CC be(ore t$e sai! o((icer co%l! ta+e action on t$e re.%est (or
reconsi!eration t$e &etitioner (ile! $is notice o( a&&eal ,it$ t$e
O((ice o( t$e #%!itor General an! t$is &etition (or revie, in t$is
Co%rt. On 8 Marc$ 18CC on motion o( t$e &etitioner t$is Co%rt
resolve! to s%s&en! t$e service o( notice %&on t$e #%!itor General
111
&%rs%ant to section 0 -%le 0C an! grante! t$e &etitioner (ive !a's
(rom recei&t o( notice o( t$e action ta+en b' t$e #%!itor General on
$is re.%est (or reconsi!eration ,it$in ,$ic$ to (ile a s%&&lement to
$is &etition (or revie,. On / 7%ne 18CC t$e De&%t' #%!itor General
!enie! $is re.%est (or reconsi!eration reiterating t$e gro%n!s
&revio%sl' relie! %&on in $is !ecision on 10 7an%ar' 18C0. On /1
7%ne 18CC t$e &etitioner (ile! a s%&&lement to $is &etition (or
revie, in t$is Co%rt.
*ss%e: 6ON -ivera can &ro&erl' claim (rom t$e m%nici&alit'.
2$e &etitioner conten!s t$at t$e res&on!ent s$o%l! not be
allo,e! to invo+e legal tec$nicalities to !ela' or re(%se
&a'ment a(ter its m%nici&al co%ncil $as ac+no,le!ge! t$e
in!ebte!ness beca%se t$e res&on!ent m%nici&alit' $a!
receive! an ann%al allotment or a certain &ercentage o( t$e
amo%nt collecte! %n!er t$e &rovisions o( #ct No. 188/
+no,n as t$e Motor Ke$icle La, o%t o( ,$ic$ it co%l! &a'
sai! in!ebte!ness an! t$at t$ere is no iss%e as to t$e
vali!it' o( t$e contract entere! into b' an! bet,een t$e
&etitioner an! t$e res&on!ent nor is t$ere an' .%estion as
to t$e !eliver' b' t$e &etitioner an! recei&t b' t$e
res&on!ent o( t$e roa! constr%ction materials.
Be(ore a contract ma' be entere! into vali!l' b' a
m%nici&alit' t$e la, re.%ires t$at t$ere s$o%l! be an
a&&ro&riation o( m%nici&al (%n!s to meet t$e obligation
vali!l' &asse! b' t$e m%nici&al co%ncil an! a&&rove! b' t$e
m%nici&al ma'or. *n ans,er to t$e statement o( t$e )olicitor
General t$at t$ere is no &rovision o( la, ,$ic$ a%t$oriBes a
m%nici&al ma'or to enter into a contract ,it$ a &rivate
contractor (or (%rnis$ing t$e m%nici&alit' ,it$ &%blic ,or+s
materials t$e &etitioner cites sections /1GC an! /18G o( t$e
-evise! #!ministrative Co!e. )ection /1GC &rovi!es t$at
"M%nici&alities . . . are en!o,e! ,it$ t$e (ac%lties o(
m%nici&al cor&orations to be e4ercise! b' an! t$ro%g$ t$eir
res&ective m%nici&al governments in con(ormit' ,it$ la,."
"*t s$all be com&etent (or t$em in t$eir &ro&er cor&orate
name . . . to contract an! be contracte! ,it$ . . . ." 2$e
&o,er or a%t$orit' con(erre! %&on m%nici&al cor&orations
m%st be e4ercise! in con(ormit' ,it$ la, an! t$e la,
&rovi!es t$at s%c$ contracts m%st be entere! into b' t$e
!istrict engineer.
2$e &etitioner conten!s $o,ever t$at section 18/5 o( t$e
-evise! #!ministrative Co!e m%st be rea! in connection
,it$ sections 181/ an! 1811 o( t$e same Co!e an!
concl%!es t$at section 18/5 !oes not abrogate t$e general
r%le t$at a m%nici&al co%ncil ma' !esignate an o((icer o( t$e
m%nici&al cor&oration to e4ec%te s%c$ a contract in be$al(
o( t$e m%nici&alit'. )ection 181/ re(ers to investigations
an! s%rve' b' t$e !istrict engineer (or a &ro&ose!
constr%ction or re&air o( &%blic ,or+s an! s%bmission b' $im
to t$e ma'or to re&orts an! estimates o( t$e cost o( s%c$
constr%ction or re&air ,it$ $is recommen!ations an! to t$e
&re&aration o( &lans an! s&eci(ications (or s%c$ &%blic ,or+s
an! s%&ervision o( t$e constr%ction or re&air o( t$e same.
2$e &rovisions o( sections 181/ an! 1811 o( t$e -evise!
#!ministrative Co!e !o not re(er to contracts entere! into
b' t$e m%nici&alit' (or t$e s%&&l' o( roa! constr%ction
materials.
*( t$e la, re.%ires t$at be(ore a contract involving t$e
e4&en!it%re o( =/555 or more ma' be entere! into or
a%t$oriBe! t$e m%nici&al treas%rer m%st certi(' to t$e
o((icer entering into s%c$ contract t$at (%n!s $ave been !%l'
a&&ro&riate! (or s%c$ &%r&ose an! t$at t$e amo%nt
necessar' to cover t$e &ro&ose! contract is available (or
e4&en!it%re on acco%nt t$ereo(A / an! t$at a &%r&orte!
contract entere! into contrar' to t$e re.%irements 9%st
state! is ,$oll' voi! t$e &etitionerHs claim t$at t$ere is no
longer an' .%estion as to t$e vali!it' o( t$e contract
entere! into b' an! bet,een t$e &etitioner an! t$e
m%nici&al ma'or o( Malolos is not correct.
Li+e,ise i( t$e la, &rovi!es t$at t$e &rovincial a%!itor or
$is re&resentative m%st c$ec+ %& t$e !eliveries ma!e b' a
contractor &%rs%ant to a contract la,(%ll' an! vali!l'
entere! into 1 an! t$ere ,as no s%c$ c$ec+ %& t$e
&etitionerHs claim t$at t$ere is no longer an iss%e as to
,$et$er t$e roa! constr%ction materials $ave been act%all'
!elivere! b' t$e &etitioner an! receive! b' t$e res&on!ent
is gro%n!less. 2$e #%!itor General is not in !%t' bo%n! to
&ass an! allo, in a%!it t$e s%m claime! b' t$e &etitioner i(
$e or $is a%t$oriBe! re&resentative !i! not c$ec+ %& t$e
!eliver' o( t$e cr%s$e! a!obe stone an! gravel. 2o sa' t$at
t$e &%r&ose an! aim o( t$is c$ec+ing re.%irement is to
(orestall (ra%! an! coll%sion is to state ,$at is obvio%s.
110
2$e &etitioner enliste! t$e ai! o( t$e =resi!ential Com&laints
an! #ction Committee to re.%est t$e #%!itor General to
&ass in a%!it an! a%t$oriBe t$e &a'ment or t$e &etitionerHs
claim. 2$e #%!itor General $a! no alternative b%t to com&l'
,it$ t$e &rovisions o( t$e la, an! as t$e contract entere!
into b' t$e m%nici&al ma'or o( Malolos B%lacan ,as not in
accor!ance ,it$ la, t$e #%!itor General ,as correct in
!en'ing t$e &etitionerHs claim.
)ection 71 #ct No. 188/ ot$er,ise +no,n as t$e Motor
Ke$icle La, as amen!e! b' section / -e&%blic #ct No.
110 invo+e! b' t$e &etitioner merel' allocates 15 &er cent
o( t$e mone' collecte! %n!er its &rovisions to t$e roa! an!
bri!ge (%n!s o( t$e !i((erent m%nici&alities in &ro&ortion to
&o&%lation as s$o,n in t$e latest available cens%s (or t$e
re&air maintenance an! constr%ction o( m%nici&al roa!s.
2$is alone is not s%((icient a&&ro&riation an! a%t$orit' to
!isb%rse &art o( t$e 15 &er cent collecte! %n!er t$e Motor
Ke$icle La, (or t$e &%r&ose o( &a'ing t$e claim o( t$e
&etitioner. #n! t$e section cite! as amen!e! b' section C
o( -e&%blic #ct No. 817 a&&rove! on /5 7%ne 18C1
&rovi!es:
Mone's collecte! %n!er t$e &rovisions o( t$is #ct s$all be
!e&osite! in a s&ecial tr%st acco%nt in t$e National 2reas%r'
to constit%te t$e Hig$,a' )&ecial F%n! ,$ic$ s$all be
a&&ortione! an! e4&en!e! in accor!ance ,it$ t$e
&rovisions o( t$e =$ili&&ine Hig$,a' #ct o( nineteen
$%n!re! an! (i(t'Dt$ree. )ection G58 o( t$e -evise!
#!ministrative Co!e a((or!s t$e &etitioner a reme!'.
Rivera v. Maclang
Facts: On #%g%st 18 1808 t$e m%nici&alit' o( Malolos calle! (or
bi!s (or (%rnis$ing an! !elivering materials to be %se! in t$e
maintenance an! re&air o( barrio roa!s. -ivera ,on in t$e bi!!ing
an! ,as as+e! b' t$e M%nici&al 2reas%rer to come to $is o((ice (or
e4ec%tion o( t$e corres&on!ing contract. On #%g%st 11 1808 t$e
contract ,as signe! b' a&&ellant an! b' Maclang in $is ca&acit' as
M%nici&al Ma'or o( Malolos. =%rs%ant t$ereto a&&ellant
s%bse.%entl' !elivere! to t$e m%nici&alit' gravel an! a!obe stones
val%e! at =18/1C.55. On October 1G 18C1 t$e M%nici&al co%ncil o(
Malolos &asse! a resol%tion a&&roving t$e contract b%t in s&ite o(
re&eate! !eman!s b' a&&ellant t$e &rice o( t$e materials ,as not
&ai!.
*n 18C0 a&&ellant so%g$t t$e intervention o( t$e =resi!ential
Com&laint an! #ction Commission ,$ic$ re(erre! t$e matter to t$e
General #%!iting O((ice. 2$at o((ice t%rne! !o,n t$e claim (or
&a'ment ,$ere%&on a&&ellant (ile! in t$is Co%rt a &etition (or
revie, !oc+ete! as )CDG.-. No. LD8807. *n its !ecision o( October
11 18C7 t$is Co%rt s%staine! t$e action o( t$e General #%!iting
O((ice an! $el! t$at t$e contract in .%estion ,as voi! as (ar as t$e
m%nici&al government o( Malolos ,as concerne! on t$e gro%n!
t$at no mone' $a! been a&&ro&riate! to meet t$e obligation &rior
to t$e e4ec%tion o( t$e contract as re.%ire! b' section G57 -evise!
#!ministrative Co!e. Ho,ever in t$e same !ecision t$is Co%rt
in!icate! t$at section G58 o( t$e same Co!e a((or!e! a&&ellant a
reme!'. Conse.%entl' $e (ile! t$e &resent action against
!e(en!antD a&&ellee in $is &ersonal ca&acit' &%rs%ant to t$e sai!
&rovision. 2$e trial co%rt !ismisse! t$e com&laint stating t$at
inasm%c$ as in t$e &revio%s case t$e contract entere! into
bet,een a&&ellant an! t$e M%nici&alit' o( Malolos $a! been
!eclare! n%ll an! voi! b' t$is Co%rt "it cannot &ro!%ce an' legal
e((ect (or ,$ic$ t$erea(ter no recover' can be ma!e."
*ss%e: 6ON t$e !ismissal is erroneo%s.
O%r r%ling in t$e &revio%s case is t$at t$e contract ,as n%ll
an! voi! visDaDvis t$e M%nici&alit' o( Malolos b' reason o(
noncom&liance ,it$ t$e re.%irement o( section G57 o( t$e
-evise! #!ministrative Co!e ,$ic$ states t$at "e4ce&t in
t$e case o( a contract (or s%&&lies to be carrie! in stoc+ no
contract involving t$e e4&en!it%re b' an' &rovince
m%nici&alit' c$artere! cit' or m%nici&al !istrict o( t,o
t$o%san! &esos or more s$all be entere! into or a%t$oriBe!
%ntil t$e treas%rer o( t$e &olitical !ivision concerne! s$all
$ave certi(ie! to t$e o((icer entering into s%c$ contract t$at
(%n!s $ave been !%l' a&&ro&riate! (or s%c$ &%r&ose an!
t$at t$e amo%nt necessar' to cover t$e &ro&ose! contract is
available (or e4&en!it%re on acco%nt t$ereo(."
*t s$o%l! be note! t$at t$e &resent action is against
!e(en!antD a&&ellee in $is &ersonal ca&acit' on t$e strengt$
o( section G58 o( t$e same co!e ,$ic$ &rovi!es as (ollo,s:
)3C. G58.Koi! contract S Liabilit' o( o((icer. S # &%r&orte!
contract entere! into contrar' to t$e re.%irements o( t$e
ne4t &rece!ing section $ereo( s$all be ,$oll' voi! an! t$e
11C
o((icer ass%ming to ma+e s%c$ contract s$all be liable to t$e
Government or ot$er contracting &art' (or an' conse.%ent
!amage to t$e same e4tent as i( t$e transaction $a! been
,$oll' bet,een &rivate &arties."
2$e &osition o( !e(en!antDa&&ellee as t$e o((icer ,$o
signe! t$e contract ,it$ a&&ellant in violation o( section
G57 comes s.%arel' %n!er t$e &rovision 9%st .%ote!. His
liabilit' is &ersonal as i( t$e transaction $a! been entere!
into b' $im as a &rivate &art'. 6e ta+e it t$at t$e intention
o( t$e la, in t$is res&ect is to ens%re t$at &%blic o((icers
entering into transactions ,it$ &rivate in!ivi!%als calling (or
t$e e4&en!it%re o( &%blic (%n!s observe a $ig$ !egree o(
ca%tion so t$at t$e government ma' not be t$e victim o( illD
a!vise! or im&rovi!ent action b' t$ose ass%ming to
re&resent it.
.
Pala!ox v. Province o! )locos ,orte
Facts: a tr%c+ !river em&lo'e! b' t$e &rovincial government o(
*locos Norte ran over =roceto =ala(o4 in t$e co%rse o( $is ,or+ at
t$e constr%ction o( a roa!.
*ss%e: 6ON t$e em&lo'ee ma' be $el! liable.
2$e )%&reme Co%rt in a((irming t$e trial co%rtHs !ismissal o(
t$e com&laint (or !amages $el! t$at t$e &rovince co%l! not
be ma!e liable beca%se its em&lo'ee ,as in t$e
&er(ormance o( a governmental (%nction t$e constr%ction
an! maintenance o( roa!s an! $o,ever tragic an!
!e&lorable it ma' be t$e !eat$ o( =ala(o4 im&ose! on t$e
&rovince no !%t' to &a' monetar' consi!eration.
Menoza v. *e Leon
Facts: 2$is is an action (or !amages against t$e in!ivi!%al
members o( t$e m%nici&al co%ncil o( t$e m%nici&alit' o( Killasis
=angasinan (or t$e revocation o( t$e lease o( an e4cl%sive (err'
&rivilege a,ar!e! to t$e &lainti(( %n!er t$e &rovisions o( #ct. No.
1G10 o( t$e =$ili&&ine Commission. #(ter %ser o( a little more t$an
one 'ear t$e &lainti(( ,as (orcibl' e9ecte! %n!er an! in &%rs%ance
o( a resol%tion a!o&te! b' t$e $erein !e(en!ants a,ar!ing a
(ranc$ise (or t$e same (err' to anot$er &erson.
*ss%e: 6ON t$e m%nici&alit' ma' be s%e! (or acts !one in t$e
e4ercise o( its cor&orate (%nctions.
M%nici&alities o( t$e =$ili&&ine *slan!s organiBe! %n!er t$e
M%nici&al Co!e $ave bot$ governmental an! cor&orate or
b%siness (%nctions. O( t$e (irst class are t$e a!o&tion o(
reg%lations against (ire an! !isease &reservation o( t$e
&%blic &eace maintenance o( m%nici&al &risons
establis$ment o( &rimar' sc$ools an! &ostDo((ices etc. O(
t$e latter class are t$e establis$ment o( m%nici&al
,ater,or+s (or t$e %se o( t$e in$abitants t$e constr%ction
an! maintenance o( m%nici&al sla%g$ter$o%ses mar+ets
stables bat$ing establis$ments ,$arves (erries an!
(is$eries. #ct No. 1G10 &rovi!es t$at t$e %se o( eac$ (is$er'
(is$Dbree!ing gro%n! (err' stable mar+et sla%g$ter$o%se
belonging to an' m%nici&alit' or to,ns$i& s$all be let to t$e
$ig$est bi!!er ann%all' or (or s%c$ longer &erio! not
e4cee!ing (ive 'ears as ma' $ave been &revio%sl' a&&rove!
b' t$e &rovincial boar! o( t$e &rovince in ,$ic$ t$e
m%nici&alit' or to,ns$i& is locate!.
2$e t,o(ol! c$aracter o( t$e &o,ers o( a m%nici&alit' %n!er
o%r M%nici&al Co!e ;#ct No. 8/< is so a&&arent an! its
&rivate or cor&orate &o,ers so n%mero%s an! im&ortant t$at
,e (in! no !i((ic%lt' in reac$ing t$e concl%sion t$at t$e
general &rinci&les governing t$e liabilit' o( s%c$ entities to
&rivate in!ivi!%als as en%nciate! in t$e @nite! )tates are
a&&licable to it. 2$e !istinction bet,een governmental
&o,ers on t$e one $an! an! cor&orate or &ro&rietar' or
b%siness &o,ers on t$e ot$er as t$e latter class is vario%sl'
!escribe! in t$e re&orte! cases $as long been recogniBe!
in t$e @nite! )tates an! t$ere is no !issent (rom t$e
!octrine.
2$e m%nici&alit' is not liable (or t$e acts o( its o((icers or
agents in t$e &er(ormance in t$e &er(ormance o( its
governmental (%nctions. Governmental a((airs !o not lose
t$eir governmental c$aracter b' being !elegate! to t$e
m%nici&al government. Nor !oes t$e (act t$at s%c$ !%ties
are &er(orme! b' s%c$ o((icers o( t$e m%nici&alit' ,$ic$ (or
convenience t$e state allo,s t$e m%nici&alit' to select
c$ange t$eir c$aracter. 2o &reserve t$e &eace &rotect t$e
morals an! $ealt$ o( t$e comm%nit' an! so on is to
a!minister government ,$et$er it be !one b' t$e central
government itsel( or is s$i(te! to a local organiBation. #n!
11G
t$e state being imm%ne (or in9%ries s%((ere! b' &rivate
in!ivi!%als in t$e a!ministration o( strictl' governmental
(%nctions li+e imm%nit' is en9o'e! b' t$e m%nici&alit' in
t$e &er(ormance o( t$e same !%ties %nless it is e4&ressl'
ma!e liable b' stat%te.
"2$e state cannot ,it$o%t its consent e4&resse! t$ro%g$
legislation be s%e! (or in9%ries res%lting (rom an act !one in
t$e e4ercise o( its la,(%l governmental &o,ers an!
&ertaining to t$e a!ministration o( government. . . .
M%nici&al cor&orations are agents o( t$e state in t$e
e4ercise o( certain governmental &o,ers. 2$e &reservation
o( t$e $ealt$ an! &eace o( its in$abitants an! (ire
&rotections a((or!e! t$e &ro&ert' o,ner are governmental
(%nctions."
# m%nici&alit' is not e4em&t (rom liabilit' (or t$e negligent
&er(ormance o( its cor&orate or &ro&rietar' or b%siness
(%nctions. *n t$e a!ministration o( its &atrimonial &ro&ert' it
is to be regar!e! as a &rivate cor&oration or in!ivi!%al
1C1111D11 so (ar as its liabilit' to t$ir! &ersons on contract
or in tort is concerne!. *ts contracts vali! entere! into ma'
be en(orce! an! !amages ma' be collecte! (rom it (or t$e
torts o( its o((icers or agents ,it$in t$e sco&e o( t$eir
em&lo'ment in &recisel' t$e same manner an! to t$e same
e4tent as t$ose o( &rivate cor&orations or in!ivi!%als. #s to
s%c$ matters t$e &rinci&les res&on!eat s%&erior a&&lies. *t is
(or t$ese &%r&oses t$at t$e m%nici&alit' is ma!e liable to
s%its in t$e co%rts.
"M%nici&al cor&orations are s%b9ect to be s%e! %&on
contracts an! in tort. *n a &revio%s c$a&ter ,e $ave
consi!ere! at lengt$ t$e a%t$orit' o( s%c$ cor&orations to
ma+e contracts t$e mo!e o( e4ercising an! t$e e((ect o(
transcen!ing t$e &o,er. 2$is leaves b%t little to a!! in t$is
&lace res&ecting t$eir liabilit' in actions e4 contract%. @&on
an a%t$oriBe! contract DDDD t$at is %&on a contract ,it$in t$e
sco&e o( t$e c$arter or legislative &o,ers o( t$e cor&oration
an! !%l' ma!e b' t$e &ro&er o((icers or agents DDDD t$e' are
liable in t$e same manner an! to t$e same e4tent as &rivate
cor&orations or nat%ral &ersons."
2$e same a%t$or sa's in section 1G07:"2$e r%le o( la, is a
general one t$at t$e s%&erior or em&lo'er m%st ans,er
civill' (or t$e negligence or ,ant o( s+ill o( $is agent or
servant in t$e co%rse or line o( $is em&lo'ment b' ,$ic$
anot$er ,$o is (ree (rom contrib%tor' (a%lt is in9%re!.
M%nici&al cor&orations %n!er t$e con!itions $erein state!
(all ,it$in t$e o&eration o( t$is r%le o( la, an! are liable
accor!ingl' to civil actions (or !amages ,$en t$e re.%isite
elements o( liabilit' coe4ist. 2o create s%c$ liabilit' it is
(%n!amentall' necessar' t$at t$e act !one ,$ic$ is in9%rio%s
to ot$ers m%st be ,it$in t$e sco&e o( t$e cor&orate &o,ers
as &rescribe! b' c$arter or &ositive enactment ;t$e e4tent
o( ,$ic$ &o,ers all &ersons are bo%n! at t$eir &eril to
+no,<A in ot$er ,or!s it m%st not be %ltra vires in t$e sense
t$at it is not ,it$in t$e &o,er or a%t$orit' o( t$e cor&oration
to act in re(erence to it %n!er an' circ%mstances. *( t$e act
com&laine! o( necessaril' lies ,$oll' o%tsi!e o( t$e general
or s&ecial &o,ers o( t$e cor&oration as con(erre! in its
c$arter or b' stat%te t$e cor&oration can in no event be
liable to an action (or !amages ,$et$er it !irectl'
comman!e! t$e &er(ormance o( t$e act or ,$et$er it be
!one b' its o((icers ,it$o%t its e4&ress comman!A (or a
cor&oration cannot o( co%rse be im&lie!l' liable to a greater
e4tent t$an it co%l! ma+e itsel( b' e4&ress cor&orate vote or
action."
*t o(ten $a&&ens t$at t$e same agent or agenc' $as bot$ a
governmental an! a cor&orate c$aracter. )%c$ (or instance
are a m%nici&al ,ater s'stem !esigne! bot$ (or &rotection
against (ire ;a governmental (%nction< an! to s%&&l' ,ater
to t$e in$abitants (or &ro(it ;a cor&orate (%nction< a
m%nici&al lig$t &lant bot$ (or lig$ting t$e streets ;a
governmental (%nction< an! (or (%rnis$ing lig$t to t$e
in$abitants at a &ro(it ;a cor&orate (%nction<A an agent ,$o
is at t$e same time a &olice o((icer an! a careta+er o( a
m%nici&al toll bri!ge. *t is also sometimes t$e case t$at
consi!erable !i((ic%lt' is e4&erience! in !etermining
,$et$er a &artic%lar m%nici&al !%t' is governmental or
cor&orate.
B%t .%estions s%c$ as t$ese !o not arise in t$e case at bar.
Here it is clear t$at t$e leasing o( a m%nici&al (err' to t$e
$ig$est bi!!er (or a s&eci(ie! &erio! o( time is not a
governmental b%t cor&orate (%nction. )%c$ a lease ,$en
vali!l' entere! into constit%tes a contract ,it$ t$e lessee
,$ic$ t$e m%nici&alit' is bo%n! to res&ect. 2$e matter is
t$%s s%mme! %& b' Dillon on M%nici&al
Cor&orations:"Or!inances ma!e b' m%nici&alities %n!er
117
c$arter or legislative a%t$orit' containing grants to ,ater
an! lig$t com&anies an! ot$er &%blic service cor&orations o(
t$e rig$t to %se t$e street &i&es mains etc. %&on t$e
con!ition o( t$e &er(ormance o( service b' t$e grantee are
a(ter acce&tance an! &er(ormance b' t$e grantee contracts
&rotecte! b' t$e &ro$ibition o( t$e Fe!eral Constit%tion
against t$e enactment o( an' )tate La, im&airing t$e
obligation o( contracts."
*t seems clear t$ere(ore t$at %n!er t$e &rovisions o( t$e
M%nici&al Co!e an! #ct No. 1G10 above re(erre! to t$e
&lainti(( $a! a veste! rig$t to t$e e4cl%sive o&eration o( t$e
(err' in .%estion (or t$e &erio! o( $is lease. 6ere t$e
m%nici&alit' a &art' to t$is action it ,o%l! be &atent t$at a
9%!gment (or !amages against it (or t$e rescission o( t$e
contract ,o%l! be &ro&er. 2$is be it sai! is t$e %s%al
met$o! o( e4acting !amages eit$er e4 contract% or e4
!elicto arising (rom t$e e4ercise o( cor&orate &o,ers o(
m%nici&alities. B%t t$e &resent action is against t$e
members o( t$e m%nici&al co%ncil &ersonall' an! t$e
.%estion arise: #re t$e' liableT *n a!ministering t$e
&atrimonial &ro&ert' o( m%nici&alities t$e m%nici&al co%ncil
occ%&ies (or most &%r&oses t$e &osition o( a boar! o(
!irectors o( a &rivate cor&oration. *n !is&osing o( t$e local
&%blic %tilities i( t$e term ma' be %se! s%c$ as t$e (is$ing
an! (err' rig$ts etc. t$e' m%st e4ercise consi!erable
9%!gment. *t re.%ires some consi!erable amo%nt o( b%siness
ac%men to com&el &er(ormance on t$e &art o( lessees o(
t$ese &rivileges in accor!ance ,it$ t$e terms o( t$eir leases
an! in a manner in ,$ic$ ,ill not ca%se t$e &ro&ert' to
!eteriorate. W%estions m%st contin%all' arise ,$ic$ are not
e4&ressl' &rovi!e! (or in t$e contracts an! ,$ic$ m%st be
settle! i( &ossible in a manner t$at ,ill &reserve t$e 9%st
claims o( t$e m%nici&alit'. *n!ee! it is not at all im&robable
t$at on occasion t$e co%ncilors ma' $ave reason to believe
t$at a &artic%lar contract $as been rescin!e! b' t$e ot$er
&art' or $as never been legall' entere! into in bot$ o(
,$ic$ cases !ecisive ste&s m%st be ta+en to sa(eg%ar! t$e
interest o( t$e m%nici&alit'. 2$%s in M%nici&alit' o( Monca!a
vs. Ca9%igan ;/1 =$il. -e&. 180< t$e lessee o( a m%nici&al
(is$er' ,as evicte! (or (ailing to &a' $is .%arterl' rents. 2$e
m%nici&al a%t$orities rig$tl' $el! t$at t$e contract ,as
rescin!e! b%t (orcibl' evicte! t$e lessee instea! o( resorting
to t$e co%rts. Hence in an action b' t$e m%nici&alit'
against t$e lessee an! $is bon!smen to recover rent
arrears !amages ,ere allo,e! t$e lessee on $is
co%nterclaim (or t$e loss ca%se! b' t$e (orcible eviction.
Nevert$eless ,e !o not t$in+ t$e co%ncilors co%l! $ave
been &ersonall' $el! liable (or t$eir error in resorting to
(orcible eviction o( t$e lessee. 2$eirs ,as an error o(
9%!gment an! $onest mista+e on t$eir &art as to t$e rig$ts
o( t$e m%nici&alit' in t$e &remises. 6e t$in+ t$e r%le o(
&ersonal liabilit' s$o%l! be ,it$ m%nici&al co%ncilors in s%c$
matters as it is ,it$ t$e !irectors or managers o( an
or!inar' &rivate cor&oration.
"@n!er t$e r%le t$at !irectors are not liable (or mista+es o(
9%!gment it (ollo,s nat%rall' t$at t$e' are not liable (or t$e
mismanagement o( t$e cor&orate a((airs ,$ere s%c$
mismanagement is a mista+e o( 9%!gment. 2$e ,is!om o(
t$is r%le is not onl' a&&rove! b' common e4&erience b%t b'
la, ,riters an! all co%rts. # r%le so rigi! as to $ol! !irectors
&ersonall' liable (or $onest mista+es in cor&orate
management ,o%l! !eter all &r%!ent b%siness men (rom
acce&ting s%c$ &ositions. 2$e reme!' o( stoc+$ol!ers in all
s%c$ cases is b' a c$ange in t$e !irector'. . . . 2$e r%le is
t$at t$e co%rts ,ill not inter(ere even in !o%bt(%l cases. B%t
!irectors an! managing !irectors ma' be liable (or
mismanagement to ,arrant t$e inter&osition o( a co%rt
eit$er as against t$e contem&late! action o( t$e !irectors
or a ma9orit' o( t$e stoc+$ol!ers or to give relie( b' ,a' o(
!amages a(ter t$e action $as been ta+enA a case m%st be
ma!e o%t ,$ic$ &lainl' s$o,s t$at s%c$ action is so (ar
o&&ose! to t$e tr%e interests o( t$e cor&oration itsel( as to
lea! to t$e clear in(erence t$at no t$%s acting co%l! $ave
been in(l%ence! b' an' $onest !esire to sec%re s%c$
interests b%t t$at $e m%st $ave acte! ,it$ an intent to
s%bserve some o%tsi!e &%r&ose regar!less o( t$e
conse.%ences to t$e cor&oration an! in a manner
inconsistent ,it$ its interests."
*n t$e case at bar t$ere is not a scintilla o( evi!ence t$at
t$ere ,as an' 9%sti(iable reason (or (orcibl' evicting t$e
&lainti(( (rom t$e (err' ,$ic$ $e $a! lease!. On t$e contrar'
t$e !e(en!ant co%ncilors attem&te! to 9%sti(' t$eir action on
t$e gro%n! t$at t$e (err' ,$ic$ $e ,as o&erating ,as not
t$e one lease! to $imA t$is in s&ite o( t$e (act t$e viceD
118
&resi!ent $a! &ersonall' &lace! $im in &ossession o( it more
t$an a 'ear be(ore an! t$e (act t$at $e $a! o&erate! t$is
(err' (or over a 'ear evi!entl' ,it$ t$e +no,le!ge o( t$e
!e(en!ants. 2$e evi!ence is so clear t$at t$e (err' o( ,$ic$
t$e &lainti(( ,as !is&ossesse! ,as t$e one ,$ic$ $e $a!
lease! t$at no reasonable man ,o%l! entertain an' !o%bt
,$atever %&on t$e .%estion. Hence ,e cannot sa' t$at in
rescin!ing t$e contract ,it$ t$e &lainti(( t$ereb' ma+ing
t$e m%nici&alit' liable to an action (or !amages (or no vali!
reason at all t$e !e(en!ant co%ncilors ,ere $onestl' acting
(or t$e interests o( t$e m%nici&alit'. 6e are t$ere(ore o(
t$e o&inion t$at t$e !e(en!ants are liable 9ointl' an!
severall' (or t$e !amages s%staine! b' t$e &lainti(( (rom t$e
rescission o( $is contract o( lease o( t$e (err' &rivilege in
.%estion. *n reac$ing t$is concl%sion ,e $ave not (aile! to
ta+e into consi!eration t$e r%le en%nciate! in Dennison vs.
2$e Moro =rovince nor t$e !istinction ma!e b' t$e co%rts in
t$e @nite! )tates bet,een t$e liabilit' o( a m%nici&al
cor&oration ma!e s%c$ b' acce&tance o( a village or cit'
c$arter an! t$e invol%ntar' .%asi cor&orations +no,n as
co%nties to,ns sc$ools !istricts an! es&eciall' t$e
to,ns$i&s o( Ne, 3nglan!. @&on t$e .%estion o( t$e amo%nt
o( !amages s%staine! ,e acce&t t$e (in!ings o( t$e lo,er
co%rt.
Municipalit# o! (an &ernano- La Anion v. &irme
Facts: #t abo%t 7 oHcloc+ in t$e morning o( December 1G 18GC a
collision occ%rre! involving a &assenger 9ee&ne' !riven b'
Bernar!o Balagot an! o,ne! b' t$e 3state o( Macario Nieveras a
gravel an! san! tr%c+ !riven b' 7ose Manan!eg an! o,ne! b'
2an.%ilino Kelas.%eB an! a !%m& tr%c+ o( t$e M%nici&alit' o( )an
Fernan!o La @nion an! !riven b' #l(re!o Bislig. D%e to t$e im&act
several &assengers o( t$e 9ee&ne' incl%!ing La%reano BaniRa )r.
!ie! as a res%lt o( t$e in9%ries t$e' s%staine! an! (o%r ;0< ot$ers
s%((ere! var'ing !egrees o( &$'sical in9%ries. On December 11
18GG t$e &rivate res&on!ents instit%te! a com&laint (or !amages
against t$e 3state o( Macario Nieveras an! Bernar!o Balagot
o,ner an! !river res&ectivel' o( t$e &assenger 9ee&ne' ,$ic$
,as !oc+ete! Civil Case No. /181 in t$e Co%rt o( First *nstance o(
La @nion Branc$ * )an Fernan!o La @nion. Ho,ever t$e a(oresai!
!e(en!ants (ile! a 2$ir! =art' Com&laint against t$e &etitioner an!
t$e !river o( a !%m& tr%c+ o( &etitioner. 2$erea(ter t$e case ,as
s%bse.%entl' trans(erre! to Branc$ *K &resi!e! over b' res&on!ent
9%!ge an! ,as s%bse.%entl' !oc+ete! as Civil Case No. 157DBg. B'
virt%e o( a co%rt or!er !ate! Ma' 7 187C t$e &rivate res&on!ents
amen!e! t$e com&laint ,$erein t$e &etitioner an! its reg%lar
em&lo'ee #l(re!o Bislig ,ere im&lea!e! (or t$e (irst time as
!e(en!ants. =etitioner (ile! its ans,er an! raise! a((irmative
!e(enses s%c$ as lac+ o( ca%se o( action nonDs%abilit' o( t$e )tate
&rescri&tion o( ca%se o( action an! t$e negligence o( t$e o,ner an!
!river o( t$e &assenger 9ee&ne' as t$e &ro4imate ca%se o( t$e
collision.
*n t$e co%rse o( t$e &rocee!ings t$e res&on!ent 9%!ge iss%e! t$e
(ollo,ing .%estione! or!ers: ;1< Or!er !ate! November 0 187C
!ismissing t$e crossDclaim against Bernar!o BalagotA ;/< Or!er
!ate! 7%l' 11 187G a!mitting t$e #men!e! #ns,er o( t$e
M%nici&alit' o( )an Fernan!o La @nion an! Bislig an! setting t$e
$earing on t$e a((irmative !e(enses onl' ,it$ res&ect to t$e
s%&&ose! lac+ o( 9%ris!ictionA ;1< Or!er !ate! #%g%st /1 187G
!e(erring t$e resol%tion o( t$e gro%n!s (or t$e Motion to Dismiss
%ntil t$e trialA ;0< Or!er !ate! Febr%ar' /1 1877 !en'ing t$e
motion (or reconsi!eration o( t$e or!er o( 7%l' 11 187G (ile! b' t$e
M%nici&alit' an! Bislig (or $aving been (ile! o%t o( timeA ;C< Or!er
!ate! Marc$ 1G 1877 reiterating t$e !enial o( t$e motion (or
reconsi!eration o( t$e or!er o( 7%l' 11 187GA ;G< Or!er !ate! 7%l'
/G 1878 !eclaring t$e case !eeme! s%bmitte! (or !ecision it
a&&earing t$at &arties $ave not 'et s%bmitte! t$eir res&ective
memoran!a !es&ite t$e co%rtHs !irectionA an! ;7< Or!er !ate!
)e&tember 7 1878 !en'ing t$e &etitionerHs motion (or
reconsi!eration an! or or!er to recall &rosec%tion ,itnesses (or
cross e4amination. 2C: !e(en!ants M%nici&alit' o( )an Fernan!o La
@nion an! #l(re!o Bislig are or!ere! to &a' 9ointl' an! severall'
&lainti((s 7%ana -iman!oDBaniRa Mrs. =riscilla B. )%rell La%reano
BaniRa 7r. )or Marietta BaniRa Mrs. Fe B. )oriano Montano
BaniRa Or9a BaniRa an! L'!ia B. BaniRa t$e s%ms o( =1C55.55 as
(%neral e4&enses an! =/0700./0 as t$e lost e4&ecte! earnings o(
t$e late La%reano BaniRa )r. =15555.55 as moral !amages an!
=/C55.55 as attorne'Hs (ees. Costs against sai! !e(en!ants.2$e
Com&laint is !ismisse! as to !e(en!ants 3state o( Macario Nieveras
an! Bernar!o Balagot. M- MN2. M- !enie!. Finall' t$e res&on!ent
9%!ge iss%e! an or!er !ate! December 1 1878 &rovi!ing t$at i(
!e(en!ants m%nici&alit' an! Bislig (%rt$er ,is$ to &%rs%e t$e
matter !is&ose! o( in t$e or!er o( 7%l' /G 1878 s%c$ s$o%l! be
118
elevate! to a $ig$er co%rt in accor!ance ,it$ t$e -%les o( Co%rt.
Hence t$is &etition.
*ss%e: 1. 6ON t$e res&on!ent co%rt committe! grave ab%se o(
!iscretion ,$en it !e(erre! an! (aile! to resolve t$e !e(ense o(
nonDs%abilit' o( t$e )tate amo%nting to lac+ o( 9%ris!iction in a
motion to !ismiss.
*n t$e case at bar t$e res&on!ent 9%!ge !e(erre! t$e
resol%tion o( t$e !e(ense o( nonDs%abilit' o( t$e )tate
amo%nting to lac+ o( 9%ris!iction %ntil trial. Ho,ever sai!
res&on!ent 9%!ge (aile! to resolve s%c$ !e(ense &rocee!e!
,it$ t$e trial an! t$erea(ter ren!ere! a !ecision against t$e
m%nici&alit' an! its !river. 2$e res&on!ent 9%!ge !i! not
commit grave ab%se o( !iscretion ,$en in t$e e4ercise o( its
9%!gment it arbitraril' (aile! to resolve t$e vital iss%e o( nonD
s%abilit' o( t$e )tate in t$e g%ise o( t$e m%nici&alit'.
Ho,ever sai! 9%!ge acte! in e4cess o( $is 9%ris!iction ,$en
in $is !ecision !ate! October 15 1878 $e $el! t$e
m%nici&alit' liable (or t$e .%asiD!elict committe! b' its
reg%lar em&lo'ee.
2$e !octrine o( nonDs%abilit' o( t$e )tate is e4&ressl'
&rovi!e! (or in #rticle JK* )ection 1 o( t$e Constit%tion to
,it: "t$e )tate ma' not be s%e! ,it$o%t its consent." )tate!
in sim&le &arlance t$e general r%le is t$at t$e )tate ma'
not be s%e! e4ce&t ,$en it gives consent to be s%e!.
Consent ta+es t$e (orm o( e4&ress or im&lie! consent.
34&ress consent ma' be embo!ie! in a general la, or a
s&ecial la,. 2$e stan!ing consent o( t$e )tate to be s%e! in
case o( mone' claims involving liabilit' arising (rom
contracts is (o%n! in #ct No. 1581. # s&ecial la, ma' be
&asse! to enable a &erson to s%e t$e government (or an
allege! .%asiD!elict as in Merritt v. Government o( t$e
=$ili&&ine *slan!s. Consent is im&lie! ,$en t$e government
enters into b%siness contracts t$ereb' !escen!ing to t$e
level o( t$e ot$er contracting &art' an! also ,$en t$e )tate
(iles a com&laint t$%s o&ening itsel( to a co%nterclaim.
M%nici&al cor&orations (or e4am&le li+e &rovinces an!
cities are agencies o( t$e )tate ,$en t$e' are engage! in
governmental (%nctions an! t$ere(ore s$o%l! en9o' t$e
sovereign imm%nit' (rom s%it. Nevert$eless t$e' are
s%b9ect to s%it even in t$e &er(ormance o( s%c$ (%nctions
beca%se t$eir c$arter &rovi!e! t$at t$e' can s%e an! be
s%e!.
# !istinction s$o%l! (irst be ma!e bet,een s%abilit' an!
liabilit'. ")%abilit' !e&en!s on t$e consent o( t$e state to be
s%e! liabilit' on t$e a&&licable la, an! t$e establis$e!
(acts. 2$e circ%mstance t$at a state is s%able !oes not
necessaril' mean t$at it is liableA on t$e ot$er $an! it can
never be $el! liable i( it !oes not (irst consent to be s%e!.
Liabilit' is not conce!e! b' t$e mere (act t$at t$e state $as
allo,e! itsel( to be s%e!. 6$en t$e state !oes ,aive its
sovereign imm%nit' it is onl' giving t$e &lainti(( t$e c$ance
to &rove i( it can t$at t$e !e(en!ant is liable."
/. 6ON t$e m%nici&alit' is liable (or t$e torts committe! b' its
em&lo'ee t$e test o( liabilit' o( t$e m%nici&alit' !e&en!s on
,$et$er or not t$e !river acting in be$al( o( t$e
m%nici&alit' is &er(orming governmental or &ro&rietar'
(%nctions.
2orio v. Fontanilla: t$e !istinction o( &o,ers becomes
im&ortant (or &%r&oses o( !etermining t$e liabilit' o( t$e
m%nici&alit' (or t$e acts o( its agents ,$ic$ res%lt in an
in9%r' to t$ir! &ersons.
Cit' o( Mo+omo v. Lo': "M%nici&al cor&orations e4ist in a
!%al ca&acit' an! t$eir (%nctions are t,o(ol!. *n one t$e'
e4ercise t$e rig$t s&ringing (rom sovereignt' an! ,$ile in
t$e &er(ormance o( t$e !%ties &ertaining t$ereto t$eir acts
are &olitical an! governmental. 2$eir o((icers an! agents in
s%c$ ca&acit' t$o%g$ electe! or a&&ointe! b' t$em are
nevert$eless &%blic (%nctionaries &er(orming a &%blic
service an! as s%c$ t$e' are o((icers agents an! servants
o( t$e state. *n t$e ot$er ca&acit' t$e m%nici&alities e4ercise
a &rivate &ro&rietar' or cor&orate rig$t arising (rom t$eir
e4istence as legal &ersons an! not as &%blic agencies. 2$eir
o((icers an! agents in t$e &er(ormance o( s%c$ (%nctions act
in be$al( o( t$e m%nici&alities in t$eir cor&orate or in!ivi!%al
ca&acit' an! not (or t$e state or sovereign &o,er.
*t $as alrea!' been remar+e! t$at m%nici&al cor&orations
are s%able beca%se t$eir c$arters grant t$em t$e
com&etence to s%e an! be s%e!. Nevert$eless t$e' are
generall' not liable (or torts committe! b' t$em in t$e
!isc$arge o( governmental (%nctions an! can be $el!
ans,erable onl' i( it can be s$o,n t$at t$e' ,ere acting in a
&ro&rietar' ca&acit'. *n &ermitting s%c$ entities to be s%e!
t$e )tate merel' gives t$e claimant t$e rig$t to s$o, t$at
t$e !e(en!ant ,as not acting in its governmental ca&acit'
1/5
,$en t$e in9%r' ,as committe! or t$at t$e case comes
%n!er t$e e4ce&tions recogniBe! b' la,. Failing t$is t$e
claimant cannot recover.
*n t$e case at bar t$e !river o( t$e !%m& tr%c+ o( t$e
m%nici&alit' insists t$at "$e ,as on $is ,a' to t$e Nag%ilian
river to get a loa! o( san! an! gravel (or t$e re&air o( )an
Fernan!oHs m%nici&al streets." *n t$e absence o( an'
evi!ence to t$e contrar' t$e reg%larit' o( t$e &er(ormance
o( o((icial !%t' is &res%me! &%rs%ant to )ection 1;m< o( -%le
111 o( t$e -evise! -%les o( Co%rt. Hence 6e r%le t$at t$e
!river o( t$e !%m& tr%c+ ,as &er(orming !%ties or tas+s
&ertaining to $is o((ice.
=ala(o4 et. al. v. =rovince o( *locos Norte t$e District
3ngineer an! t$e =rovincial 2reas%rer: t$at "t$e
constr%ction or maintenance o( roa!s in ,$ic$ t$e tr%c+ an!
t$e !river ,or+e! at t$e time o( t$e acci!ent are a!mitte!l'
governmental activities." #(ter a care(%l e4amination o(
e4isting la,s an! 9%ris&r%!ence 6e arrive at t$e concl%sion
t$at t$e m%nici&alit' cannot be $el! liable (or t$e torts
committe! b' its reg%lar em&lo'ee ,$o ,as t$en engage!
in t$e !isc$arge o( governmental (%nctions. Hence t$e
!eat$ o( t$e &assenger tragic an! !e&lorable t$o%g$ it
ma' be im&ose! on t$e m%nici&alit' no !%t' to &a'
monetar' com&ensation.
&ernano et al v. CA an Cit# o! *avao
Facts: On November 7 187C Bibiano Morta mar+et master o( t$e
#g!ao =%blic Mar+et (ile! a re.%isition re.%est ,it$ t$e C$ie( o(
=ro&ert' o( t$e Cit' 2reas%rerHs O((ice (or t$e reDem&t'ing o( t$e
se&tic tan+ in #g!ao. #n invitation to bi! ,as iss%e! to #%relio
Bert%lano Lito Catarsa Feliciano Bascon Fe!erico Bolo an!
#ntonio )%Rer 7r. Bascon ,on t$e bi!. On November /G 187C
Bascon ,as noti(ie! an! $e signe! t$e &%rc$ase or!er. Ho,ever
be(ore s%c$ !ate s&eci(icall' on November // 187C bi!!er
Bert%lano ,it$ (o%r ot$er com&anions namel' 7oselito Garcia
6illiam Liagoso #lberto Fernan!o an! 7ose Fa9ar!o 7r. ,ere (o%n!
!ea! insi!e t$e se&tic tan+. 2$e bo!ies ,ere remove! b' a
(ireman. One bo!' t$at o( 7oselito Garcia ,as ta+en o%t b' $is
%ncle Danilo Garcia an! ta+en to t$e -egional Hos&ital b%t $e
e4&ire! t$ere. 2$e Cit' 3ngineerHs o((ice investigate! t$e case an!
learne! t$at t$e (ive victims entere! t$e se&tic tan+ ,it$o%t
clearance (rom it nor ,it$ t$e +no,le!ge an! consent o( t$e
mar+et master. *n (act t$e se&tic tan+ ,as (o%n! to be almost
em&t' an! t$e victims ,ere &res%me! to be t$e ones ,$o !i! t$e
reDem&t'ing. Dr. 7%an #bear o( t$e Cit' Healt$ O((ice a%to&sie! t$e
bo!ies an! in $is re&orts &%t t$e ca%se o( !eat$ o( all (ive victims
as gas&$'4iaH ca%se! b' t$e !imin%tion o( o4'gen s%&&l' in t$e
bo!' ,or+ing belo, normal con!itions. 2$e l%ngs o( t$e (ive victims
b%rst s,elle! in $emmorr$agic areas an! t$is ,as !%e to t$eir
inta+e o( to4ic gas ,$ic$ in t$is case ,as s%l(i!e gas &ro!%ce!
(rom t$e ,aste matter insi!e t$e se&tic tan+." 2C: !ismisse!.
*#C?C#: reverse!. M-:reverse!.
*ss%e: 1. 6ON Davao Cit' g%ilt' o( negligence in t$e case at bar.
/. 6ON s%c$ negligence t$e imme!iate an! &ro4imate ca%se
o( !eat$s o( t$e victims $ereo(.
Negligence $as been !e(ine! as t$e (ail%re to observe (or
t$e &rotection o( t$e interests o( anot$er &erson t$at !egree
o( care &reca%tion an! vigilance ,$ic$ t$e circ%mstances
9%stl' !eman! ,$ereb' s%c$ ot$er &erson s%((ers in9%r'.
@n!er t$e la, a &erson ,$o b' $is omission ca%ses !amage
to anot$er t$ere being negligence is oblige! to &a' (or t$e
!amage !one ;#rticle /17G Ne, Civil Co!e<.
2o be entitle! to !amages (or an in9%r' res%lting (rom t$e
negligence o( anot$er a claimant m%st establis$ t$e
relation bet,een t$e omission an! t$e !amage. He m%st
!rove %n!er #rticle /178 o( t$e Ne, Civil Co!e t$at t$e
!e(en!antHs negligence ,as t$e imme!iate an! &ro4imate
ca%se o( $is in9%r'.
=ro4imate ca%se $as been !e(ine! as t$at ca%se ,$ic$ in
nat%ral an! contin%o%s se.%ence %nbro+en b' an' e((icient
intervening ca%se &ro!%ces t$e in9%r' an! ,it$o%t ,$ic$
t$e res%lt ,o%l! not $ave occ%rre!. =roo( o( s%c$ relation o(
ca%se an! e((ect is not an ar!%o%s one i( t$e claimant !i!
not in an' ,a' contrib%te to t$e negligence o( t$e
!e(en!ant. Ho,ever ,$ere t$e res%lting in9%r' ,as t$e
&ro!%ct o( t$e negligence o( bot$ &arties t$ere e4ists a
!i((ic%lt' to !iscern ,$ic$ acts s$all be consi!ere! t$e
&ro4imate ca%se o( t$e acci!ent.
=etitioners (a%lt t$e cit' government o( Davao (or (ailing to
clean a se&tic tan+ (or t$e &erio! o( 18 'ears res%lting in an
acc%m%lation o( $'!rogen s%l(i!e gas ,$ic$ +ille! t$e
laborers. 2$e' conten! t$at s%c$ (ail%re ,as com&o%n!e!
1/1
b' t$e (act t$at t$ere ,as no ,arning sign o( t$e e4isting
!anger an! no e((orts e4erte! b' t$e &%blic res&on!ent to
ne%traliBe or ren!er $armless t$e e((ects o( t$e to4ic gas.
2$e' s%bmit t$at t$e &%blic res&on!entHs gross negligence
,as t$e &ro4imate ca%se o( t$e (atal inci!ent. 6e !o not
s%bscribe to t$is vie,. 6$ile it ma' be tr%e t$at t$e &%blic
res&on!ent $as been remiss in its !%t' to reDem&t' t$e
se&tic tan+ ann%all' s%c$ negligence ,as not a contin%ing
one. @&on learning (rom t$e re&ort o( t$e mar+et master
abo%t t$e nee! to clean t$e se&tic tan+ o( t$e &%blic toilet in
#g!ao =%blic Mar+et t$e &%blic res&on!ent imme!iatel'
res&on!e! b' iss%ing invitations to bi! (or s%c$ service.
2$erea(ter it a,ar!e! t$e bi! to t$e lo,est bi!!er Mr.
Feliciano Bascon. 2$e &%blic res&on!ent t$ere(ore lost no
time in ta+ing %& reme!ial meas%res to meet t$e sit%ation.
*t is li+e,ise an %n!is&%te! (act t$at !es&ite t$e &%blic
res&on!entHs (ail%re to reDem&t' t$e se&tic tan+ since 18CG
&eo&le in t$e mar+et $ave been %sing t$e &%blic toilet (or
t$eir &ersonal necessities b%t $ave remaine! %nscat$e!.
2$e absence o( an' acci!ent ,as !%e to t$e &%blic
res&on!entHs com&liance ,it$ t$e sanitar' an! &l%mbing
s&eci(ications in constr%cting t$e toilet an! t$e se&tic tan+.
Hence t$e to4ic gas (rom t$e ,aste matter co%l! not $ave
lea+e! o%t beca%se t$e se&tic tan+ ,as airDtig$t. 2$e onl'
in!ication t$at t$e se&tic tan+ in t$e case at bar ,as (%ll an!
nee!e! em&t'ing ,as ,$en ,ater came o%t (rom it. :et
even ,$en t$e se&tic tan+ ,as (%ll t$ere ,as no re&ort o(
an' cas%alt' o( gas &oisoning !es&ite t$e &resence o(
&eo&le living near it or &assing on to& o( it or %sing t$e
&%blic toilet (or t$eir &ersonal necessities. =etitioners ma!e
a lot o( (%ss over t$e lac+ o( an' ventilation &i&e in t$e toilet
to em&$asiBe t$e negligence o( t$e cit' government an!
&resente! ,itnesses to attest on t$is lac+. Ho,ever t$is
strateg' bac+(ire! on t$eir (aces. 2$eir ,itnesses ,ere not
e4&ert ,itnesses. On t$e ot$er $an! 3ngineer Demetrio
#lin!a!a o( t$e cit' government testi(ie! an! !emonstrate!
b' !ra,ings $o, t$e sa(et' re.%irements li+e emission o(
gases in t$e constr%ction o( bot$ toilet an! se&tic tan+ $ave
been com&lie! ,it$. He state! t$at t$e ventilation &i&e nee!
not be constr%cte! o%tsi!e t$e b%il!ing as it co%l! also be
embo!ie! in t$e $ollo, bloc+s as is %s%all' !one in
resi!ential b%il!ings. 2$e &etitioners s%bmitte! no
com&etent evi!ence to corroborate t$eir oral testimonies or
reb%t t$e testimon' given b' 3ngr. #lin!a!a. 6e also !o not
agree ,it$ t$e &etitionerHs s%bmission t$at ,arning signs o(
no4io%s gas s$o%l! $ave been &%t %& in t$e toilet in a!!ition
to t$e signs o( "M3N" an! "6OM3N" alrea!' in &lace in t$at
area. 2oilets an! se&tic tan+s are not n%isances &er se as
!e(ine! in #rticle G80 o( t$e Ne, Civil Co!e ,$ic$ ,o%l!
necessitate ,arning signs (or t$e &rotection o( t$e &%blic.
6$ile t$e constr%ction o( t$ese &%blic (acilities !eman!s
%tmost com&liance ,it$ sa(et' an! sanitar' re.%irements
t$e &%tting %& o( ,arning signs is not one o( t$ose
re.%irements.
*n vie, o( t$is (act%al milie% it ,o%l! a&&ear t$at an
acci!ent s%c$ as to4ic gas lea+age (rom t$e se&tic tan+ is
%nli+el' to $a&&en %nless one removes its covers. 2$e
acci!ent in t$e case at bar occ%rre! beca%se t$e victims on
t$eir o,n an! ,it$o%t a%t$orit' (rom t$e &%blic res&on!ent
o&ene! t$e se&tic tan+. Consi!ering t$e nat%re o( t$e tas+
o( em&t'ing a se&tic tan+ es&eciall' one ,$ic$ $as not been
cleane! (or 'ears an or!inaril' &r%!ent &erson s$o%l!
%n!o%bte!l' be a,are o( t$e atten!ant ris+s. 2$e victims
are no e4ce&tionA more so ,it$ Mr. Bert%lano an ol! $an! in
t$is +in! o( service ,$o is &res%me! to +no, t$e $aBar!s o(
t$e 9ob. His (ail%re t$ere(ore an! t$at o( $is men to ta+e
&reca%tionar' meas%res (or t$eir sa(et' ,as t$e &ro4imate
ca%se o( t$e acci!ent. 2$e (atal acci!ent in t$is case ,o%l!
not $ave $a&&ene! b%t (or t$e victimsH negligence. 2$%s
t$e a&&ellate co%rt ,as correct to observe t$at: ". . . Co%l!
t$e victims $ave !ie! i( t$e' !i! not o&en t$e se&tic tan+
,$ic$ t$e' ,ere not in t$e (irst &lace a%t$oriBe! to o&enT
6$o bet,een t$e &assive ob9ect ;se&tic tan+< an! t$e active
s%b9ect ;t$e victims $erein< ,$o $aving no a%t$orit'
t$ere(ore arrogate! %nto t$emselves t$e tas+ o( o&ening
t$e se&tic tan+ ,$ic$ ca%se! t$eir o,n !eat$s s$o%l! be
res&onsible (or s%c$ !eat$s. Ho, co%l! t$e se&tic tan+
,$ic$ $as been in e4istence since t$e 18C5Hs be t$e
&ro4imate ca%se o( an acci!ent t$at occ%rre! onl' on
November // 187CT 2$e st%bborn (act remains t$at since
18CG %& to occ%rrence o( t$e acci!ent in 187C no in9%r' nor
!eat$ ,as ca%se! b' t$e se&tic tan+. 2$e onl' reasonable
concl%sion t$at co%l! be !ra,n (rom t$e above is t$at t$e
1//
victims !eat$ ,as ca%se! b' t$eir o,n negligence in
o&ening t$e se&tic tan+ . . ."
=etitioners (%rt$er conten! t$at t$e (ail%re o( t$e mar+et
master to s%&ervise t$e area ,$ere t$e se&tic tan+ is
locate! is a re(lection o( t$e negligence o( t$e &%blic
res&on!ent. 6e !o not t$in+ so. 2$e mar+et master +ne,
t$at ,or+ on t$e se&tic tan+ ,as still (ort$coming. *t m%st be
remembere! t$at t$e bi!!ing $a! 9%st been con!%cte!.
#lt$o%g$ t$e ,inning bi!!er ,as alrea!' +no,n t$e a,ar!
to $im ,as still to be ma!e b' t$e Committee on #,ar!s.
@&on t$e ot$er $an! t$e acci!ent ,$ic$ be(ell t$e victims
,$o are not in an' ,a' connecte! ,it$ t$e ,inning bi!!er
$a&&ene! be(ore t$e a,ar! co%l! be given. Consi!ering t$at
t$ere ,as 'et no a,ar! an! or!er to commence ,or+ on t$e
se&tic tan+ t$e !%t' o( t$e mar+et master or $is sec%rit'
g%ar!s to s%&ervise t$e ,or+ co%l! not $ave starte!. #lso
t$e victims co%l! not $ave been seen ,or+ing in t$e area
beca%se t$e se&tic tan+ ,as $i!!en b' a garbage storage
,$ic$ is more or less ten ;15< meters a,a' (rom t$e com(ort
room itsel(. 2$e s%rre&titio%s ,a' in ,$ic$ t$e victims !i!
t$eir 9ob ,it$o%t clearance (rom t$e mar+et master or an' o(
t$e sec%rit' g%ar!s goes against t$eir goo! (ait$. 3ven t$eir
relatives or (amil' members !i! not +no, o( t$eir &lan to
clean t$e se&tic tan+.
Finall' &etitioners insistence on t$e a&&licabilit' o( #rticle
/0 o( t$e Ne, Civil Co!e cannot be s%staine!. )ai! la,
states: "#rt. /0. *n all contract%al &ro&ert' or ot$er
relations ,$en one o( t$e &arties is at a !isa!vantage on
acco%nt o( $is moral !e&en!ence ignorance in!igence
mental ,ea+ness ten!er age or ot$er $an!ica& t$e co%rts
m%st be vigilant (or $is &rotection." 6e a&&rove o( t$e
a&&ellate co%rtHs r%ling t$at ";,<$ile one o( t$e victims ,as
invite! to bi! (or sai! &ro9ect $e !i! not ,in t$e bi!
t$ere(ore t$ere is a total absence o( contract%al relations
bet,een t$e victims an! t$e Cit' Government o( Davao Cit'
t$at co%l! give rise to an' contract%al obligation m%c$ less
an' liabilit' on t$e &art o( Davao Cit'." 2$e acci!ent ,as
in!ee! tragic an! 6e em&at$iBe ,it$ t$e &etitioners.
Ho,ever t$e $erein circ%mstances lea! @s to no ot$er
concl%sion t$an t$at t$e &ro4imate an! imme!iate ca%se o(
t$e !eat$ o( t$e victims ,as !%e to t$eir o,n negligence.
Conse.%entl' t$e &etitioners cannot !eman! !amages
(rom t$e &%blic res&on!ent.
'uzon an Mapagu v. CA an +urao /supra- see p. 1
'orio v. &intanilla
Facts: On October /1 18C8 t$e M%nici&al Co%ncil o( Malasi.%i
=angasinan &asse! -esol%tion No. 1C8 ,$ereb' "it resolve! to
manage t$e 18C8 Malasi.%i to,n (iesta celebration on 7an%ar' /1
// an! /1 18C8." -esol%tion No. 18/ ,as also &asse! creating t$e
"18C8 Malasi.%i 2o,n Fiesta 34ec%tive Committee" ,$ic$ in t%rn
organiBe! a s%bcommittee on entertainment an! stage ,it$ 7ose
Macaraeg as C$airman. 2$e co%ncil a&&ro&riate! t$e amo%nt o(
=155.55 (or t$e constr%ction o( / stages one (or t$e "BarB%ela" an!
anot$er (or t$e "cancionan". 2$e "BarB%ela" entitle! "Mi!as
34travanganBa" ,as !onate! b' an association o( Malasi.%i
em&lo'ees o( t$e Manila -ailroa! Com&an' in Caloocan -iBal. 2$e
tro%&e arrive! in t$e evening o( 7an%ar' // (or t$e &er(ormance
an! one o( t$e members o( t$e gro%& ,as Kicente Fontanilla. 2$e
&rogram starte! at abo%t 15:1C oHcloc+ t$at evening ,it$ some
s&eec$es an! man' &ersons ,ent %& t$e stage. 2$e "BarB%ela"
t$en began b%t be(ore t$e !ramatic &art o( t$e &la' ,as reac$e!
t$e stage colla&se! an! Kicente Fontanilla ,$o ,as at t$e rear o(
t$e stage ,as &inne! %n!erneat$. Fontanilla ,as ta+en to t$e )an
Carlos General Hos&ital ,$ere $e !ie! in t$e a(ternoon o( t$e
(ollo,ing !a'. 2$e $eirs o( Kicente Fontanilla (ile! a com&laint ,it$
t$e Co%rt o( First *nstance o( Manila on )e&tember 11 18C8 to
recover !amages. 2C: 34ec%tive Committee a&&ointe! b' t$e
m%nici&al co%ncil $a! e4ercise! !%e !iligence an! care li+e a goo!
(at$er o( t$e (amil' in selecting a com&etent man to constr%ct a
stage strong eno%g$ (or t$e occasion an! t$at i( it colla&se! t$at
,as !%e to (orces be'on! t$e control o( t$e committee on
entertainment conse.%entl' t$e !e(en!ants ,ere not liable (or
!amages (or t$e !eat$ o( Kicente Fontanilla. 2$e com&laint ,as
accor!ingl' !ismisse! in a !ecision !ate! 7%l' 15 18G/. C#
reverse!.
*ss%e: *s t$e celebration o( a to,n (iesta an %n!erta+ing in t$e
e4ercise o( a m%nici&alit'Hs governmental or &%blic (%nction or is it
o( a &rivate or &ro&rietar' c$aracterT
1/1
Hol!ing o( t$e to,n (iesta in 18C8 b' t$e m%nici&alit' o(
Malasi.%i =angasinan ,as an e4ercise o( a &rivate or
&ro&rietar' (%nction o( t$e m%nici&alit'.
C$a&ter on M%nici&al La, o( t$e -evise! #!ministrative
Co!e &rovi!es: )ection //8/. Celebration o( (iesta. # (iesta
ma' be $el! in eac$ m%nici&alit' not o(tener t$an once a
'ear %&on a !ate (i4e! b' t$e m%nici&al co%ncil. # (iesta
s$all not be $el! %&on an' ot$er !ate t$an t$at la,(%ll'
(i4e! t$ere(or e4ce&t ,$en (or ,eig$t' reasons s%c$ as
t'&$oons in%n!ations eart$.%a+es e&i!emics or ot$er
&%blic calamities t$e (iesta cannot be $el! in t$e !ate (i4e!
in ,$ic$ case it ma' be $el! at a later !ate in t$e same
'ear b' resol%tion o( t$e co%ncil."
2$is &rovision sim&l' gives a%t$orit' to t$e m%nici&alit' to
accelebrate a 'earl' (iesta b%t it !oes not im&ose %&on it a
!%t' to observe one. Hol!ing a (iesta even i( t$e &%r&ose is
to commemorate a religio%s or $istorical event o( t$e to,n
is in essence an act (or t$e s&ecial bene(it o( t$e comm%nit'
an! not (or t$e general ,el(are o( t$e &%blic &er(orme! in
&%rs%ance o( a &olic' o( t$e state. 2$e mere (act t$at t$e
celebration as claime! ,as not to sec%re &ro(it or gain b%t
merel' to &rovi!e entertainment to t$e to,n in$abitants is
not a concl%sive test. For instance t$e maintenance o(
&ar+s is not a so%rce o( income (or t$e to,n nonet$eless it
is &rivate %n!erta+ing as !isting%is$e! (rom t$e
maintenance o( &%blic sc$ools 9ails an! t$e li+e ,$ic$ are
(or &%blic service. 2$ere can be no $ar! an! (ast r%le (or
&%r&oses o( !etermining t$e tr%e nat%re o( an %n!erta+ing
or (%nction o( a m%nici&alit'A t$e s%rro%n!ing circ%mstances
o( a &artic%lar case are to be consi!ere! an! ,ill be
!ecisive. 2$e basic element $o,ever bene(icial to t$e
&%blic t$e %n!erta+ing ma' be is t$at it is governmental in
essence ot$er,ise t$e (%nction becomes &rivate or
&ro&rietar' in c$aracter. 3asil' no governmental or &%blic
&olic' o( t$e state is involve! in t$e celebration o( a to,n
(iesta.
/. 6ON %n!er t$e !octrine o( res&on!ent s%&erior &etitionerD
m%nici&alit' is to be $el! liable (or !amages (or t$e !eat$ o(
Kicente Fontanilla i( t$at ,as attrib%table to t$e negligence
o( t$e m%nici&alit'Hs o((icers em&lo'ees or agents. :3).
"#rt. /17G Civil Co!e: 6$oever b' act or omission ca%ses
!amage to anot$er t$ere being (a%lt or negligence is
oblige! to &a' (or t$e !amage !one. . . ." "#rt. /185. Civil
Co!e: 2$e obligation im&ose! b' article /17G is !eman!able
not onl' (or oneHs o,n acts or omission b%t also (or t$ose o(
&ersons (or ,$om one is res&onsible . . ."
On t$is &oint t$e Co%rt o( #&&eals (o%n! an! $el! t$at t$ere
,as negligence. 2$e trial co%rt gave cre!ence to t$e
testimon' o( #ngel Nova!o a ,itness o( t$e !e(en!ants
;no, &etitioners< t$at a member o( t$e "e4travaganBa
tro%&e" remove! t,o &rinci&al braces locate! on t$e (ront
&ortion o( t$e stage an! %se! t$em to $ang t$e screen or
"telon" an! t$at ,$en man' &eo&le ,ent %& t$e stage t$e
latter colla&se!. 2$is testimon' ,as not believe! $o,ever
b' res&on!ent a&&ellate co%rt an! rig$tl' so. #ccor!ing to
sai! !e(en!ants t$ose t,o braces ,ere "mot$er" or
"&rinci&al" braces locate! semiD!iagonall' (rom t$e (ront
en!s o( t$e stage to t$e (ront &osts o( t$e tic+et boot$
locate! at t$e rear o( t$e stage an! ,ere (astene! ,it$ a
bamboo t,ine. 2$at being t$e case it becomes incre!ible
t$at an' &erson in $is rig$t min! ,o%l! remove t$ose
&rinci&al braces an! leave t$e (ront &ortion o( t$e stage
&racticall' %ns%&&orte!. Moreover i( t$at !i! $a&&en t$ere
,as in!ee! negligence as t$ere ,as lac+ o( s%&ervision over
t$e %se o( t$e stage to &revent s%c$ an occ%rrence. #t an'
rate t$e g%itarist ,$o ,as &ointe! to b' Nova!o as t$e
&erson ,$o remove! t$e t,o bamboo braces !enie! $aving
!one so. 2$e Co%rt o( #&&eals sai!. "#mor b' $imsel( alone
co%l! not $ave remove! t$e t,o braces ,$ic$ m%st be
abo%t ten meters long an! (astene! t$em on to& o( t$e
stage (or t$e c%rtain. 2$e stage ,as onl' (ive an! a $al(
meters ,i!e )%rel' it ,o%l! be im&ractical an! %n,iel!' to
%se a ten meter bamboo &ole m%c$ more t,o &oles (or t$e
stage c%rtain." 2$e a&&ellate co%rt also (o%n! t$at t$e stage
,as not strong eno%g$ consi!ering t$at onl' =155.55 ,as
a&&ro&riate (or t$e constr%ction o( t,o stages an! ,$ile t$e
(loor o( t$e "BarB%ela" stage ,as o( ,oo!en &lan+s t$e
&osts an! braces %se! ,ere o( bamboo material. 6e
li+e,ise observe t$at alt$o%g$ t$e stage ,as !escribe! b'
t$e &etitioners as being s%&&orte! b' "/0" &osts
nevert$eless t$ere ,ere onl' 0 in (ront 0 at t$e rear an! C
on eac$ si!e. 6$ere ,ere t$e restT
2$e Co%rt o( #&&eals t$%s concl%!e!: "2$e co%rt a .%o itsel(
attrib%te! t$e colla&se o( t$e stage to t$e great n%mber o(
1/0
onloo+ers ,$o mo%nte! t$e stage. 2$e m%nici&alit' an!?or
its agents $a! t$e necessar' means ,it$in its comman! to
&revent s%c$ an occ%rrence. Having (aile! to ta+e t$e
necessar' ste&s to maintain t$e sa(et' o( t$e stage (or t$e
%se o( t$e &artici&ants in t$e stage &resentation &re&are! in
connection ,it$ t$e celebration o( t$e to,n (iesta
&artic%larl' in &reventing non&artici&ants or s&ectators
(rom mo%nting an! acc%m%lating on t$e stage ,$ic$ ,as
not constr%cte! to meet t$e a!!itional ,eig$t t$e
!e(en!antsDa&&ellees ,ere negligent an! are liable (or t$e
!eat$ o( Kicente Fontanilla."
2$e (in!ings o( t$e res&on!ent a&&ellate co%rt t$at t$e (acts
as &resente! to it establis$ negligence as a matter o( la,
an! t$at t$e M%nici&alit' (aile! to e4ercise t$e !%e !iligence
o( a goo! (at$er o( t$e (amil' ,ill not !ist%rbe! b' @s in t$e
absence o( a clear s$o,ing o( an ab%se o( !iscretion or a
gross misa&&re$ension o( (acts. Liabilit' rests on
negligence ,$ic$ is "t$e ,ant o( s%c$ care as a &erson o(
or!inar' &r%!ence ,o%l! e4ercise %n!er t$e circ%mstances
o( t$e case."
2$%s &rivate res&on!ents arg%e t$at t$e "Mi!as
34travaganBa" ,$ic$ ,as to be &er(orme! !%ring t$e to,n
(iesta ,as a "!onation" o((ere! b' an association o(
Malasi.%i em&lo'ees o( t$e Manila -ailroa! Co. in Caloocan
an! t$at ,$en t$e M%nici&alit' o( Malasi.%i acce&te! t$e
!onation o( services an! constr%cte! &recisel' a "BarB%ela
stage" (or t$e &%r&ose t$e &artici&ants in t$e stage s$o,
$a! t$e rig$t to e4&ect t$at t$e M%nici&alit' t$ro%g$ its
"Committee on entertainment an! stage" ,o%l! b%il! or &%t
%& a stage or &lat(orm strong eno%g$ to s%stain t$e ,eig$t
or b%r!en o( t$e &er(ormance an! ta+e t$e necessar'
meas%res to ins%re t$e &ersonal sa(et' o( t$e &artici&ants.
6e agree.
)an!ers v. Cit' o( Long Beac$ 180/ ,$ic$ ,as an action
against t$e cit' (or in9%ries s%staine! (rom a (all ,$en
&lainti(( ,as !escen!ing t$e ste&s o( t$e cit' a%!itori%m.
2$e cit' ,as con!%cting a "Mno, 'o%r Cit' 6ee+" an! one
o( t$e (eat%res ,as t$e s$o,ing o( a motion &ict%re in t$e
cit' a%!itori%m to ,$ic$ t$e general &%blic ,as invite! an!
&lainti(( )an!ers ,as one o( t$ose ,$o atten!e!. *n
s%staining t$e a,ar! (or !amages in (avor o( &lainti(( t$e
District Co%rt o( #&&eal )econ! !istrict Cali(ornia $el!
inter alia t$at t$e "Mno, 'o%r Cit' 6ee+" ,as a "&ro&rietar'
activit'" an! not a "governmental one" o( t$e cit' t$at
!e(en!ant o,e! to &lainti(( an "invitee" t$e !%t' o(
e4ercising or!inar' care (or $er sa(et' an! &lainti(( ,as
entitle! to ass%me t$at s$e ,o%l! not be e4&ose! to a
!anger ;,$ic$ in t$is case consiste! o( lac+ o( s%((icient
ill%mination o( t$e &remises< t$at ,o%l! come to $er
t$ro%g$ a violation o( !e(en!antHs !%t'.
6e can sa' t$at t$e !ecease! Kicente Fontanilla ,as
similarl' sit%ate! as )an!ers. 2$e M%nici&alit' o( Malasi.%i
resolve! to celebrate t$e to,n (iesta in 7an%ar' o( 18C8A it
create! a committee in c$arge o( t$e entertainment an!
stageA an association o( Malasi.%i resi!ents res&on!e! to
t$e call (or t$e (estivities an! vol%nteere! to &resent a stage
s$o,A Kicente Fontanilla ,as one o( t$e &artici&ants ,$o
li+e )an!ers $a! t$e rig$t to e4&ect t$at $e ,o%l! be
e4&ose! to !anger on t$at occasion.
Lastl' &etitioner or a&&ellant M%nici&alit' cannot eva!e
res&onsibilit' an!?or liabilit' %n!er t$e claim t$at it ,as 7ose
Macaraeg ,$o constr%cte! t$e stage. 2$e m%nici&alit'
acting t$ro%g$ its m%nici&al co%ncil a&&ointe! Macaraeg as
c$airman o( t$e s%bDcommittee on entertainment an! in
c$arge o( t$e constr%ction o( t$e "BarB%ela" stage. Macaraeg
acte! merel' as an agent o( t$e M%nici&alit'. @n!er t$e
!octrine o( res&on!ent s%&erior mentione! earlier
&etitioner is res&onsible or liable (or t$e negligence o( its
agent acting ,it$in $is assigne! tas+s.
". . . ,$en it is so%g$t to ren!er a m%nici&al cor&oration
liable (or t$e act o( servants or agents a car!inal in.%ir' is
,$et$er t$e' are t$e servants or agents o( t$e cor&oration.
*( t$e cor&oration a&&oints or elects t$em can control t$em
in t$e !isc$arge o( t$eir !%ties can contin%e or remove
t$em can $ol! t$em res&onsible ( or t$e manner in ,$ic$
t$e' !isc$arge t$eir tr%st an! i( t$ose !%ties relate to t$e
e4ercise o( cor&orate &o,ers an! are (or t$e &ec%liar
bene(it o( t$e cor&oration in its local or s&ecial interest t$e'
ma' 9%stl' be regar!e! as its agents or servants an! t$e
ma4im o( res&on!ent s%&erior a&&lies."
/. 6ON m%nici&alit' co%ncilors ,$o enacte! t$e or!inance an!
create! t$e (iesta committee are liable.
2$e Co%rt o( #&&eals $el! t$e co%ncilors 9ointl' an!
soli!aril' liable ,it$ t$e m%nici&alit' (or !amages %n!er
1/C
#rticle /7 o( t$e Civil Co!e ,$ic$ &rovi!es t$at "an' &erson
s%((ering material or moral loss beca%se a &%blic servant or
em&lo'ee re(%ses or neglects ,it$o%t 9%st ca%se to &er(orm
$is o((icial !%t' ma' (ile an action (or !amages an! ot$er
relie( against t$e latter."
*n t$eir =etition (or revie, t$e m%nici&al co%ncilors allege
t$at t$e Co%rt o( #&&eals erre! in r%ling t$at t$e $ol!ing o( a
to,n (iesta is not a governmental (%nction an! t$at t$ere
,as negligence on t$eir &art (or not maintaining an!
s%&ervising t$e sa(e %se o( t$e stage in a&&l'ing #rticle /7
o( t$e Civil Co!e against t$em an! in not $ol!ing 7ose
Macaraeg liable (or t$e colla&se o( t$e stage an! t$e
conse.%ent !eat$ o( Kicente Fontanilla.
6e agree ,it$ &etitioners t$at t$e Co%rt o( #&&eals erre! in
a&&l'ing #rticle /7 o( t$e Civil Co!e against t$em (or t$is
&artic%lar article covers a case o( nonD(easance or nonD
&er(ormance b' a &%blic o((icer o( $is o((icial !%t'A it !oes
not a&&l' to a case o( negligence or mis(easance in carr'ing
o%t an o((icial !%t'. *( 6e are le! to set asi!e t$e !ecision o(
t$e Co%rt o( #&&eals inso(ar as t$ese &etitioners are
concerne! it is beca%se o( &lain error committe! b'
res&on!ent co%rt ,$ic$ $o,ever is not invo+e! in
&etitionersH brie(.
Mig%el v. C#: t$e )%&reme Co%rt is veste! ,it$ am&le
a%t$orit' to revie, matters not assigne! as errors in an
a&&eal i( it (in!s t$at t$eir consi!eration an! resol%tion are
in!is&ensable or necessar' in arriving at a 9%st !ecision in a
given case an! t$at t$is is a%t$oriBe! %n!er )ec. 7 -%le C1
o( t$e -%les o( Co%rt. 6e believe t$at t$is &rono%ncement
can ,ell be a&&lie! in t$e instant case.
2$e Co%rt o( #&&eals in its !ecision no, %n!er revie, $el!
t$at t$e celebration o( a to,n (iesta b' t$e M%nici&alit' o(
Malasi.%i ,as not a governmental (%nction. 6e %&$el! t$at
r%ling. 2$e legal conse.%ence t$ereo( is t$at t$e
M%nici&alit' stan!s on t$e same (ooting as an or!inar'
&rivate cor&oration ,it$ t$e m%nici&al co%ncil acting as its
boar! o( !irectors. *t is an elementar' &rinci&le t$at a
cor&oration $as a &ersonalit' se&arate an! !istinct (rom its
o((icers !irectors or &ersons com&osing it an! t$e latter
are not as a r%le coDres&onsible in an action (or !amages (or
tort or negligence ;c%l&a a.%iliana< committe! b' t$e
cor&orationHs em&lo'ees or agents %nless t$ere is a s$o,ing
o( ba! (ait$ or gross or ,anton negligence on t$eir &art.
"2$e or!inar' !octrine is t$at a Director merel' b' reason
o( $is o((ice is not &ersonall' liable (or t$e torts o( $is
cor&orationA $e m%st be s$o,n to $ave &ersonall' vote! (or
or ot$er,ise &artici&ate! in t$em."
"O((icers o( a cor&oration Hare not $el! liable (or t$e
negligence o( t$e cor&oration merel' beca%se o( t$eir
o((icial relation to it b%t beca%se o( some ,rong(%l or
negligent act b' s%c$ o((icer amo%nting to a breac$ o( !%t'
,$ic$ res%lte! in an in9%r' . . . 2o ma+e an o((icer o( a
cor&oration liable (or t$e negligence o( t$e cor&oration t$ere
m%st $ave been %&on $is &art s%c$ a breac$ o( !%t' as
contrib%te! to or $el&e! to bring abo%t t$e in9%r'A t$at is to
sa' $e m%st be a &artici&ant in t$e ,rong(%l act."
"Directors ,$o merel' em&lo' one to give n (ire,or+s
e4$ibition on t$e cor&orate gro%n!s are not &ersonall' liable
(or t$e negligent acts o( t$e e4$ibitor."
On t$ese &rinci&les 6e absolve t$e m%nici&al co%ncilors
(rom an' liabilit' (or t$e !eat$ o( Kicente Fontanilla. 2$e
recor!s !o not s$o, t$at sai! &etitioners !irectl'
&artici&ate! in t$e !e(ective constr%ction o( t$e "BarB%ela"
stage or t$at t$e' &ersonall' &ermitte! s&ectators to go %&
t$e &lat(orm.
'eotico v. Cit# o! Manila
Facts: On 7an%ar' /7 18C8 at abo%t 8:55 &.m. 2eotico ,as at t$e
corner o( t$e Ol! L%neta an! =. B%rgos #ven%e Manila ,it$in a
"loa!ing an! %nloa!ing" Bone ,aiting (or a 9ee&ne' to ta+e $im
!o,n to,n. #(ter ,aiting (or abo%t (ive min%tes $e manage! to
$ail a 9ee&ne' t$at came along to a sto&. #s $e ste&&e! !o,n (rom
t$e c%rb to boar! t$e 9ee&ne' an! too+ a (e, ste&s $e (ell insi!e
an %ncovere! an! %nlig$te! catc$basin or man$ole on =. B%rgos
#ven%e. D%e to t$e (all $is $ea! $it t$e rim o( t$e man$ole
brea+ing $is e'eglasses an! ca%sing bro+en &ieces t$ereo( to
&ierce $is le(t e'eli!. #s bloo! (lo,e! t$ere(rom im&airing $is
vision several &ersons came to $is assistance an! &%lle! $im o%t
o( t$e man$ole. One o( t$em bro%g$t 2eotico to t$e =$ili&&ine
General Hos&ital ,$ere $is in9%ries ,ere treate! a(ter ,$ic$ $e
,as ta+en $ome. *n a!!ition to t$e lacerate! ,o%n! in $is le(t
%&&er e'eli! 2eotico s%((ere! cont%sions on t$e le(t t$ig$ t$e le(t
1/G
%&&er arm t$e rig$t leg an! t$e %&&er li& a&art (rom an abrasion
on t$e rig$t in(raD&atella region. 2$ese in9%ries an! t$e allergic
er%&tions ca%se! b' antiDtetan%s in9ections a!ministere! to $im in
t$e $os&ital re.%ire! (%rt$er me!ical treatment b' a &rivate
&ractitioner ,$o c$arge! t$ere(or =1055.55. #s a conse.%ence o(
t$e (oregoing occ%rrence 2eotico (ile! ,it$ t$e Co%rt o( First
*nstance o( Manila a com&laint S ,$ic$ ,as s%bse.%entl'
amen!e! S (or !amages against t$e Cit' o( Manila its ma'or cit'
engineer cit' $ealt$ o((icer cit' treas%rer an! c$ie( o( &olice. #s
state! in t$e !ecision o( t$e trial co%rt an! .%ote! ,it$ a&&roval
b' t$e Co%rt o( #&&eals
"#t t$e time o( t$e inci!ent &lainti(( ,as a &racticing &%blic
acco%ntant a b%sinessman an! a &ro(essor at t$e @niversit' o( t$e
3ast. He $el! res&onsible &ositions in vario%s b%siness (irms li+e
t$e =$ili&&ine Merc$an!ising Co. t$e #. @. Kalencia an! Co. t$e
)ilver ),an Man%(act%ring Com&an' an! t$e )incere =ac+ing
Cor&oration. He ,as also associate! ,it$ several civic
organiBations s%c$ as t$e 6ac+ 6ac+ Gol( Cl%b t$e C$amber o(
Commerce o( t$e =$ili&&ines :Hs Men Cl%b o( Manila an! t$e
Mnig$tHs o( -iBal. #s a res%lt o( t$e inci!ent &lainti(( ,as &revente!
(rom engaging in $is c%stomar' occ%&ation (or t,ent' !a's.
=lainti(( $as lost a !ail' income o( abo%t =C5.55 !%ring $is
inca&acit' to ,or+. Beca%se o( t$e inci!ent $e ,as s%b9ecte! to
$%miliation an! ri!ic%le b' $is b%siness associates an! (rien!s.
D%ring t$e &erio! o( $is treatment &lainti(( ,as %n!er constant (ear
an! an4iet' (or t$e ,el(are o( $is minor c$il!ren since $e ,as t$eir
onl' s%&&ort. D%e to t$e (iling o( t$is case &lainti(( $as obligate!
$imsel( to &a' $is co%nsel t$e s%m o( =/555.55. "On t$e ot$er
$an! t$e !e(ense &resente! evi!ence oral an! !oc%mentar' to
&rove t$at t$e )torm Drain )ection O((ice o( t$e Cit' 3ngineer o(
Manila receive! a re&ort o( t$e %ncovere! con!ition o( a
catc$basin at t$e corner o( =. B%rgos an! Ol! L%neta )treets
Manila on 7an%ar' /0 18C8 b%t t$e same ,as covere! on t$e
same !a'A t$at again t$e iron cover o( t$e same catc$basin ,as
re&orte! missing on 7an%ar' 15 18C8 b%t t$e sai! cover ,as
re&lace! t$e ne4t !a'A t$at t$e O((ice o( t$e Cit' 3ngineer never
receive! an' re&ort to t$e e((ect t$at t$e catc$basin in .%estion
,as not covere! bet,een 7an%ar' /C an! /8 18C8A t$at it $as
al,a's been a &olic' o( t$e sai! o((ice ,$ic$ is c$arge! ,it$ t$e
!%t' o( installation re&air an! care o( storm !rains in t$e Cit' o(
Manila t$at ,$enever a re&ort is receive! (rom ,$atever so%rce o(
t$e loss o( a catc$basin cover t$e matter is imme!iatel' atten!e!
to eit$er b' imme!iatel' re&lacing t$e missing cover or covering
t$e catc$basin ,it$ steel mattingA t$at beca%se o( t$e l%crative
scra& iron b%siness t$en &revailing stealing o( iron catc$basin
covers ,as ram&antA t$at t$e O((ice o( t$e Cit' 3ngineer $as (ile!
com&laints in co%rt res%lting (rom t$e(t o( sai! iron coversA t$at in
or!er to &revent s%c$ t$e(ts t$e cit' government $as c$ange! t$e
&osition an! la'o%t o( catc$ basins in t$e Cit' b' constr%cting t$em
%n!er t$e si!e,al+ ,it$ concrete cement covers an! o&enings on
t$e si!es o( t$e g%tterA an! t$at t$ese c$anges $a! been
%n!erta+en b' t$e cit' (rom time to time ,$enever (%n!s ,ere
available." #(ter a&&ro&riate &rocee!ings t$e Co%rt o( First *nstance
o( Manila ren!ere! t$e a(orementione! !ecision s%staining t$e
t$eor' o( t$e !e(en!ants an! !ismissing t$e amen!e! com&laint
,it$o%t costs.
On a&&eal ta+en b' &lainti(( t$is !ecision ,as a((irme! b' t$e
Co%rt o( #&&eals e4ce&t inso(ar as t$e Cit' o( Manila is concerne!
,$ic$ ,as sentence! to &a' !amages in t$e aggregate s%m o(
=G7C5.55. Hence t$is a&&eal b' t$e Cit' o( Manila.
*ss%e: 1. *s t$e case is governe! b' )ection 0 o( -# 058 ;C$arter o(
t$e Cit' o( Manila< or #rticle /188 CC.
)ec 0 -# 058: "2$e cit' s$all not be liable or $el! (or
!amages or in9%ries to &ersons or &ro&ert' arising (rom t$e
(ail%re o( t$e Ma'or t$e M%nici&al Boar! or an' ot$er cit'
o((icer to en(orce t$e &rovisions o( t$is c$a&ter or an'
ot$er la, or or!inance or (rom negligence o( sai! Ma'or
M%nici&al Boar! or ot$er o((icers ,$ile en(orcing or
attem&ting to en(orce sai! &rovisions." /188: "=rovinces
cities an! m%nici&alities s$all be liable (or !amages (or t$e
!eat$ o( or in9%ries s%((ere! b' an' &erson b' reason o( t$e
!e(ective con!ition o( roa!s streets bri!ges &%blic
b%il!ings an! ot$er &%blic ,or+s %n!er t$eir control or
s%&ervision."
Manila maintains t$at t$e (ormer &rovision s$o%l! &revail
over t$e latter beca%se -e&%blic #ct 058 is a s&ecial la,
inten!e! e4cl%sivel' (or t$e Cit' o( Manila ,$ereas t$e Civil
Co!e is a general la, a&&licable to t$e entire =$ili&&ines.
2$e Co%rt o( #&&eals $o,ever a&&lie! t$e Civil Co!e an!
,e t$in+ correctl'. *t is tr%e t$at inso(ar as its territorial
a&&lication is concerne! -e&%blic #ct No. 058 is a s&ecial
la, an! t$e Civil Co!e a general legislationA b%t as regar!s
t$e s%b9ectD matter o( t$e &rovisions above .%ote! )ection
1/7
0 o( -e&%blic #ct 058 establis$es a general r%le reg%lating
t$e liabilit' o( t$e Cit' o( Manila (or "!amages or in9%r' to
&ersons or &ro&ert' arising (rom t$e (ail%re o(" cit' o((icers
"to en(orce t$e &rovisions o(" sai! #ct "or an' ot$er la, or
or!inance or (rom negligence" o( t$e cit' "Ma'or M%nici&al
Boar! or ot$er o((icers ,$ile en(orcing or attem&ting to
en(orce sai! &rovisions." @&on t$e ot$er $an! #rticle /188
o( t$e Civil Co!e constit%tes a &artic%lar &rescri&tion ma+ing
"&rovinces cities an! m%nici&alities . . . liable (or !amages
(or t$e !eat$ o( or in9%r' s%((ere! b' an' &erson b' reason"
S s&eci(icall' S "o( t$e !e(ective con!ition o( roa!s streets
bri!ges &%blic b%il!ings an! ot$er &%blic ,or+s %n!er t$eir
control or s%&ervision." *n ot$er ,or!s sai! section 0 re(ers
to liabilit' arising (rom negligence in general regar!less o(
t$e ob9ect t$ereo( ,$ereas #rticle /188 governs liabilit'
!%e to "!e(ective streets "in &artic%lar. )ince t$e &resent
action is base! %&on t$e allege! !e(ective con!ition o( a
roa! sai! #rticle /188 is !ecisive t$ereon.
/. 6on t$e Cit' cannot be $el! liable (or !amages beca%se t$e
inci!ent involving $im too+ &lace in a national $ig$,a' an!
beca%se t$e it $as not been negligent in connection
t$ere,it$.
)%c$ is base! %&on an allegation o( (act not ma!e in t$e
ans,er o( t$e Cit'. Moreover 2eotico allege! in $is
com&laint as ,ell as in $is amen!e! com&laint t$at $is
in9%ries ,ere !%e to t$e !e(ective con!ition o( a street ,$ic$
is "%n!er t$e s%&ervision an! control" o( t$e Cit'. *n its
ans,er to t$e amen!e! com&laint t$e Cit' in t%rn allege!
t$at "t$e streets a(orementione! ,ere an! $ave been
constantl' +e&t in goo! con!ition an! reg%larl' ins&ecte!
an! t$e storm !rains an! man$oles t$ereo( covere! b' t$e
!e(en!ant Cit' an! its o((icers concerne!" ,$o "$ave been
ever vigilant an! Bealo%s in t$e &er(ormance o( t$eir
res&ective (%nctions an! !%ties as im&ose! %&on t$em b'
la,." 2$%s t$e Cit' $a! in e((ect a!mitte! t$at =. B%rgos
#ven%e ,as an! is %n!er its control an! s%&ervision.
Moreover t$e assertion to t$e e((ect t$at sai! aven%e is a
national $ig$,a' ,as ma!e (or t$e (irst time in its motion
(or reconsi!eration o( t$e !ecision o( t$e Co%rt o( #&&eals.
)%c$ assertion raise! t$ere(ore a .%estion o( (act ,$ic$
$a! not been &%t in iss%e in t$e trial co%rt an! can not be
set %& (or t$e (irst time on a&&eal m%c$ less a(ter t$e
ren!ition o( t$e !ecision o( t$e a&&ellate co%rt in a motion
(or t$e reconsi!eration t$ereo(.
#t an' rate %n!er #rticle /188 o( t$e Civil Co!e it is not
necessar' (or t$e liabilit' t$erein establis$e! to attac$ t$at
t$e !e(ective roa!s or streets belong to t$e &rovince cit' or
m%nici&alit' (rom ,$ic$ res&onsibilit' is e4acte!. 6$at sai!
article re.%ires is t$at t$e &rovince cit' or m%nici&alit'
$ave eit$er "control or s%&ervision" over sai! street or roa!.
3ven i( =. B%rgos aven%e ,ere t$ere(ore a national
$ig$,a' t$is circ%mstance ,o%l! not necessaril' !etract
(rom its "control or s%&ervision" b' t$e Cit' o( Manila %n!er
-e&%blic #ct 058. *n (act )ection 18;4< t$ereo( &rovi!es:
Legislative &o,ers. S 2$e M%nici&al Boar! s$all $ave t$e
(ollo,ing legislative &o,ers: ;4< )%b9ect to t$e &rovisions
o( e4isting la, to &rovi!e (or t$e la'ing o%t constr%ction
an! im&rovement an! to reg%late t$e %se o( streets
aven%es alle's si!e,al+s ,$arves &iers &ar+s
cemeteries an! ot$er &%blic &lacesA to &rovi!e (or lig$ting
cleaning an! s&rin+ling o( streets an! &%blic &lacesA . . . to
&rovi!e (or t$e ins&ection o( (i4 t$e license (ees (or an!
reg%late t$e o&enings in t$e same (or t$e la'ing o( gas
,ater se,er an! ot$er &i&es t$e b%il!ing an! re&air o(
t%nnels se,ers an! !rains an! all str%ct%res in an! %n!er
t$e same an! t$e erecting o( &oles an! t$e stringing o(
,ires t$ereinA to &rovi!e (or an! reg%late crossD,al+s c%rbs
an! g%tters t$ereinA . . . to reg%late tra((ic an! sales %&on
t$e streets an! ot$er &%blic &lacesA to &rovi!e (or t$e
abatement o( n%isances in t$e same an! &%nis$ t$e a%t$ors
or o,ners t$ereo(A to &rovi!e (or t$e constr%ction an!
maintenance an! reg%late t$e %se o( bri!ges via!%cts
an! c%lvertsA to &ro$ibit an! reg%late ball &la'ing +ite(l'ing
$oo& rolling an! ot$er am%sements ,$ic$ ma' anno'
&ersons %sing t$e streets an! &%blic &laces or (rig$ten
$orses or ot$er animalsA to reg%late t$e s&ee! o( $orses an!
ot$er animals motor an! ot$er ve$icles cars an!
locomotives ,it$in t$e limits o( t$e cit'A to reg%late t$e
lig$ts %se! on all s%c$ ve$icles cars an! locomotivesA . . .
to &rovi!e (or an! c$ange t$e location gra!e an! crossing
o( railroa!s an! com&el an' s%c$ railroa! to raise or lo,er
its trac+s to con(orm to s%c$ &rovisions or c$angesA an! to
re.%ire railroa! com&anies to (ence t$eir &ro&ert' or an'
&art t$ereo( to &rovi!e s%itable &rotection against in9%r' to
1/8
&ersons or &ro&ert' an! to constr%ct an! re&air !itc$es
!rains se,ers an! c%lverts along an! %n!er t$eir tracts so
t$at t$e nat%ral !rainage o( t$e streets an! a!9acent
&ro&ert' s$all not be obstr%cte!."
2$is a%t$orit' $as been neit$er ,it$!ra,n nor restricte! b'
-e&%blic #ct No. 817 an! 34ec%tive Or!er No. 111 !ate!
Ma' / 18CC %&on ,$ic$ t$e Cit' relies. )ai! #ct governs
t$e !is&osition or a&&ro&riation o( t$e $ig$,a' (%n!s an!
t$e giving o( ai! to &rovinces c$artere! cities an!
m%nici&alities in t$e constr%ction o( roa!s an! streets ,it$in
t$eir res&ective bo%n!aries an! 34ec%tive Or!er No. 111
merel' im&lements t$e &rovisions o( sai! -e&%blic #ct No.
817 concerning t$e !is&osition an! a&&ro&riation o( t$e
$ig$,a' (%n!s. Moreover it &rovi!es t$at "t$e constr%ction
maintenance an! im&rovement o( national &rimar' national
secon!ar' an! national ai! &rovincial an! cit' roa!s s$all be
accom&lis$e! b' t$e Hig$,a' District 3ngineers an!
Hig$,a' Cit' 3ngineers %n!er t$e s%&ervision o( t$e
Commissioner o( =%blic Hig$,a's an! s$all be (inance! (rom
s%c$ a&&ro&riations as ma' be a%t$oriBe! b' t$e -e&%blic o(
t$e =$ili&&ines in ann%al or s&ecial a&&ro&riation #cts."
2$en again t$e !etermination o( ,$et$er or not =. B%rgos
#ven%e is %n!er t$e control or s%&ervision o( t$e Cit' o(
Manila an! ,$et$er t$e latter is g%ilt' o( negligence in
connection ,it$ t$e maintenance o( sai! roa! ,$ic$ ,ere
!eci!e! b' t$e Co%rt o( #&&eals in t$e a((irmative is one o(
(act an! t$e (in!ings o( sai! Co%rt t$ereon are not s%b9ect
to o%r revie,.
Abella v. Cit# o! ,aga
Facts: 2$e m%nici&alit' o( Naga b' resol%tion or!ere! t$e closing o(
t$at &art o( a m%nici&al street ,$ic$ ran bet,een t$e &%blic mar+et
an! t$e &lainti((Hs &ro&ert' an! %se! t$e close! t$oro%g$(are to
e4&an! t$e mar+et. #s a conse.%ence o( t$is resol%tion an!
imme!iatel' a(ter t$e &assage o( t$e same D sa's t$e agreement D
&ermanent semiD&ermanent as ,ell as tem&orar' constr%ctions
,ere allo,e! b' t$e !e(en!ant m%nici&alit' o( Naga along t$e
si!e,al+ o( =lainti((Hs &ro&ert' an! ab%tting to sai! &ro&ert' (acing
=. =rieto )treet an! e4ten!ing o%t in t$e mi!!le o( t$e same street
$ence !e&riving t$e &lainti((Hs &ro&ert' o( access to sai! street an!
conse.%entl' retar!ing $er reconstr%ctions. "*t ,as (%rt$er
sti&%late! "t$at i( all t$e !amages is to be a,ar!e! t$e &lainti(( t$e
same s$o%l! not e4cee! t$e s%m o( 2$ree $%n!re! &esos ;=155<."
Naga: "it acte! an! e4ercise! its &olice &o,er" "&rom&te! to
&reserve t$e &eace an! goo! or!er o( t$e comm%nit' an! &romote
t$e general ,el(areA" an! t$is being t$e case it believes t$at it is
not liable (or !amages.
*ss%e: 6ON Naga is liable.
2$e m%nici&alit' or cit' o( Naga ,as not c$arge! ,it$ an'
%nla,(%l act or ,it$ acting ,it$o%t a%t$orit' or ,it$
invasion o( &lainti((Hs &ro&ert' rig$tsA t$e basis o( t$e lo,er
co%rtHs !ecision in )ection //0G o( t$e -evise!
#!ministrative Co!e co&ie! in a&&ellantHs brie( ,$ic$
&rovi!es t$at no m%nici&al roa! street etc. or an' &art
t$ereo( "s$all be close! ,it$o%t in!emni('ing an' &erson
&re9%!ice! t$ereb'."
2$e .%estion t$en (or !etermination b' t$e co%rt belo, ,as
re!%ce! to ,$et$er t$e &lainti(( ,as &re9%!ice! b'
!e(en!ant m%nici&alit'Hs action. 2$at s$e ,as economicall'
!amage! t$e sti&%lation o( (acts a!mitsA an! t$at t$e
in!emnit' assesse! is ,it$in t$e bo%n!s o( t$e !amages
s%((ere! t$ere is no !is&%te. #s a matter o( (act t$e
!amages a,ar!e! seem to be nominal 9%!ge! b' t$e
!escri&tion o( t$e &lainti((Hs interests a!versel' a((ecte! b'
t$e conversion o( =. =rieto )treet into a mar+et. 2$e a&&eal
is absol%tel' ,it$o%t merit an! t$e a&&eale! !ecision ,ill
be a((irme! ,it$ costs against t$e a&&ellant.
'an 'oco v. Municipal Council o! )loilo
Facts: 2$e ,i!o, o( 2an 2oco s%e! t$e m%nici&al co%ncil o( *loilo (or
t$e amo%nt o( =0/8GG.05 being t$e &%rc$ase &rice o( t,o stri&s o(
lan! one on Calle 7. M. Basa consisting o( C8/ s.%are meters an!
t$e ot$er on Calle #l!ig%er consisting o( C8 s.%are meters ,$ic$
t$e m%nici&alit' o( *loilo $a! a&&ro&riate! (or ,i!ening sai! street.
2$e Co%rt o( First *nstance o( *loilo sentence! t$e sai! m%nici&alit'
to &a' t$e &lainti(( t$e amo%nt so claime! &l%s t$e interest an!
t$e sai! 9%!gment ,as on a&&eal a((irme! b' t$is co%rt. On acco%nt
o( lac+ o( (%n!s t$e m%nici&alit' o( *loilo ,as %nable to &a' t$e sai!
9%!gment ,$ere(ore &lainti(( $a! a ,rit o( e4ec%tion iss%e against
t$e &ro&ert' o( t$e sai! m%nici&alit' b' virt%e o( ,$ic$ t$e s$eri((
attac$e! t,o a%to tr%c+s %se! (or street s&rin+ling one &olice
1/8
&atrol a%tomobile t$e &olice stations on Mabini street an! in Molo
an! Man!%rriao an! t$e concrete str%ct%res ,it$ t$e
corres&on!ing lots %se! as mar+ets b' *loilo Molo an!
Man!%rriao. #(ter notice o( t$e sale o( sai! &ro&ert' $a! been
ma!e an! a (e, !a's be(ore t$e sale t$e &rovincial (iscal o( *loilo
(ile! a motion ,$ic$ t$e Co%rt o( First *nstance &ra'ing t$at t$e
attac$ment on t$e sai! &ro&ert' be !issolve! t$at t$e sai!
attac$ment be !eclare! n%ll an! voi! as being illegal an! violative
o( t$e rig$ts o( t$e !e(en!ant m%nici&alit'. =lainti((s co%nsel
ob9ecte! o t$e (iscalHs motion b%t t$e co%rt b' or!er o( #%g%st 1/
18/C !eclare! t$e attac$ment levie! %&on t$e a(orementione!
&ro&ert' o( t$e !e(en!ant m%nici&alit' n%ll an! voi! t$ereb'
!issolving t$e sai! attac$ment.
*ss%e: 6ON t$e &ro&ert' levie! %&on is e4em&t (rom e4ec%tion.
2$e m%nici&al la, section /1GC o( t$e #!ministrative Co!e
&rovi!es t$at: M%nici&alities are &olitical bo!ies cor&orate
an! as s%c$ are en!o,e! ,it$ t$e (ac%lties o( m%nici&al
cor&orations to be e4ercise! b' an! t$ro%g$ t$eir
res&ective m%nici&al government in con(ormit' ,it$ la,.*t
s$all be com&etent (or t$em in t$eir &ro&er cor&orate
name to s%e an! be s%e! to contract an! be contracte!
,it$ to ac.%ire an! $ol! real an! &ersonal &ro&ert' (or
m%nici&al &%r&oses an! generall' to e4ercise t$e &o,ers
$ereina(ter s&eci(ie! or ot$er,ise con(erre! %&on t$em b'
la,.
For t$e &%r&oses o( t$e matter $ere in .%estion t$e
#!ministrative Co!e !oes not s&eci(' t$e +in! o( &ro&ert'
t$at a m%nici&alit' ma' ac.%ire. Ho,ever article 101 o( t$e
Civil Co!e !ivi!es t$e &ro&ert' o( &rovinces an! to,ns
;m%nici&alities< into &ro&ert' (or &%blic %se an! &atrimonial
&ro&ert'. #ccor!ing to article 100 o( t$e same Co!e
&rovincial roa!s an! (ootD&at$ s.%ares streets (o%ntains
an! &%blic ,aters !rives an! &%blic im&rovements o(
general bene(it b%ilt at t$e e4&ense o( t$e sai! to,ns or
&rovinces are &ro&ert' (or &%blic %se. #ll ot$er &ro&ert'
&ossesse! b' t$e sai! to,ns an! &rovinces is &atrimonial
an! s$all be s%b9ect to t$e &rovisions o( t$e Civil Co!e
e4ce&t as &rovi!e! b' s&ecial la,s.
*t is generall' $el! t$at &ro&ert' o,ne! b' a m%nici&alit'
,$ere not %se! (or a &%blic &%r&ose b%t (or .%asi &rivate
&%r&oses is s%b9ect to e4ec%tion on a 9%!gment against t$e
m%nici&alit' an! ma' be sol!. 2$is r%le a&&lies to s$ares o(
stoc+ o,ne! b' a m%nici&al cor&oration an! t$e li+e. B%t
t$e mere (act t$at cor&orate &ro&ert' $el! (or &%blic %ses is
being tem&oraril' %se! (or &rivate &%r&oses !oes not ma+e
it s%b9ect e4ec%tion.
*( m%nici&al &ro&ert' e4em&t (rom e4ec%tion is !estro'e!
t$e ins%rance mone' stan!s in lie% t$ereo( an! is also
e4em&t. 2$e members or in$abitants o( a m%nici&al
cor&oration &ro&er are not &ersonall' liable (or t$e !ebts o(
t$e m%nici&alit' e4ce&t t$at in t$e Ne, 3nglan! )tates t$e
in!ivi!%al liabilit' o( t$e in$abitant is generall' maintaine!.
2$e s&ecial concession o( t$e rig$t o( %s%(r%ct in a &%blic
mar+et cannot be attac$e! li+e an' or!inar' rig$t beca%se
t$at ,o%l! be to &ermit a &erson ,$o $as contracte! ,it$
t$e state or ,it$ t$e a!ministrative o((icials t$ereo( to
con!%ct an! manage a service o( a &%blic c$aracter to be
s%bstit%te! ,it$o%t t$e +no,le!ge an! consent o( t$e
a!ministrative a%t$orities b' one ,$o too+ no &art in t$e
contract t$%s giving rise to t$e &ossibilit' o( t$e reg%lar
co%rse o( a &%blic service being !ist%rbe! b' t$e more or
less legal action o( a grantee to t$e &re9%!ice o( t$e state
an! t$e &%blic interests.
2$e &rivilege or (ranc$ise grante! to a &rivate &erson to
en9o' t$e %s%(r%ct o( a &%blic mar+et cannot la,(%ll' be
attac$e! an! sol! an! a cre!itor o( s%c$ &erson can recover
$is !ebt onl' o%t o( t$e income or reven%e obtaine! b' t$e
!ebtor (rom t$e en9o'ment or %s%(r%ct o( t$e sai! &rivilege
in t$e same manner t$at t$e rig$ts o( s%c$ cre!itors o( a
railroa! com&an' can be e4ercise! an! t$eir cre!it collecte!
onl' o%t o( t$e gross recei&ts remaining a(ter !e!%ction $as
been ma!e t$ere(rom o( t$e o&erating e4&enses o( t$e roa!.
For t$e reasons containe! in t$e a%t$orities above .%ote!
,e believe t$at t$is co%rt ,o%l! $ave reac$e! t$e same
concl%sion i( t$e !ebtor $a! been m%nici&alit' o(
G%inobatan an! t$e &%blic mar+et $a! been levie! %&on b'
virt%e o( t$e e4ec%tion.
*t is evi!ent t$at t$e movable an! immovable &ro&ert' o( a
m%nici&alit' necessar' (or governmental &%r&ose ma' not
be attac$e! an! sol! (or t$e &a'ment o( a 9%!gment against
t$e m%nici&alit'. 2$e s%&reme reason (or t$is r%le is t$e
c$aracter o( t$e &%blic %se to ,$ic$ s%c$ +in! o( &ro&ert' is
!evote!. 2$e necessit' (or government service 9%sti(ies t$at
115
t$e &ro&ert' o( &%blic o( t$e m%nici&alit' be e4em&t (rom
e4ec%tion 9%st as it is necessar' to e4em&t certain &ro&ert'
o( &rivate in!ivi!%als in accor!ance ,it$ section 0C/ o( t$e
Co!e o( Civil =roce!%re.
3ven t$e m%nici&al income accor!ing to t$e above .%ote!
a%t$orities is e4em&t (rom lev' an! e4ec%tion. *n vol%me 1
&age 0G7 M%nici&al Cor&orations b' Dillon ,e (in! t$at:
M%nici&al cor&orations are instit%te! b' t$e s%&reme
a%t$orit' o( a state (or t$e &%blic goo!. 2$e' e4ercise b'
!elegation (rom t$e legislat%re a &ortion o( t$e sovereign
&o,er. 2$e main ob9ect o( t$eir creation is to act as
a!ministrative agencies (or t$e state an! to &rovi!e (or t$e
&olice an! local government o( certain !esignate! civil
!ivisions o( its territor'. 2o t$is en! t$e' are investe! ,it$
certain governmental &o,ers an! c$arge! ,it$ civil
&olitical an! m%nici&al !%ties. 2o enable t$em bene(iciall'
to e4ercise t$ese &o,ers an! !isc$arge t$ese !%ties t$e'
are clot$e! ,it$ t$e a%t$orit' to raise reven%es c$ie(l' b'
ta4ation an! s%bor!inatel' b' ot$er mo!es as b' licenses
(ines an! &enalties. 2$e reven%e o( t$e &%blic cor&oration is
t$e essential means b' ,$ic$ it is enable! to &er(orm its
a&&ointe! ,or+. De&rive! o( its reg%lar an! a!e.%ate s%&&l'
o( reven%e s%c$ a cor&oration is &racticall' !estro'e! an!
t$e en!s o( its erection t$,arte!. Base! %&on consi!erations
o( t$is c$aracter it is t$e settle! !octrine o( t$e la, t$at
onl' t$e &%blic &ro&ert' b%t also t$e ta4es an! &%blic
reven%es o( s%c$ cor&orations cannot be seiBe! %n!er
e4ec%tion against t$em eit$er in t$e treas%r' or ,$en in
transit to it. 7%!gments ren!ere! (or ta4es an! t$e &rocee!s
o( s%c$ 9%!gments in t$e $an!s o( o((icers o( t$e la, are not
s%b9ect to e4ec%tion %nless so !eclare! b' stat%te. 2$e
!octrine o( t$e inviolabilit' o( t$e &%blic reven%es b' t$e
cre!itor is maintaine! alt$o%g$ t$e cor&oration is in !ebt
an! $as no means o( &a'ment b%t t$e ta4es ,$ic$ it is
a%t$oriBe! to collect.
#not$er error assigne! b' co%nsel (or a&&ellant is t$e
$ol!ing o( t$e co%rt a .%o t$at t$e &ro&er reme!' (or
collecting t$e 9%!gment in (avor o( t$e &lainti(( ,as b' ,a'
or man!am%s. 6$ile t$is .%estion is not necessaril'
incl%!e! in t$e one ,$ic$ is t$e s%b9ect o( t$is a&&eal 'et
,e believe t$at t$e $ol!ing o( t$e co%rt assigne! as error
b' a&&ellantHs co%nsel is tr%e ,$en a(ter a 9%!gment is
ren!ere! against a m%nici&alit' it $as no &ro&ert' s%b9ect
to e4ec%tion. 2$is !octrine is maintaine! b' Dillon
;M%nici&al Cor&orations vol. 0 &ar. 1C57 Ct$ e!.< base!
%&on t$e !ecisions o( several )tates o( t$e @nion %&$ol!ing
t$e same &rinci&le an! ,$ic$ are cite! on &age /G78 o( t$e
a(oresai! ,or+. *n t$is sense t$is assignment o( error ,e
believe is gro%n!less.
Municipalit# o! Ma:ati v. CA
Facts: 2$e M%nici&alit' o( Ma+ati initiatie! e4&ro&riation
&rocee!ings against #!miral Finance Cre!itors Consorti%m *nc.
Home B%il!ing )'stem P -ealt' Cor&oration an! one #rceli =. 7o.
#ttac$e! to Ma+ati>s com&laint ,as a certi(ication t$at a ban+
acco%nt $a! been o&ene! ,it$ t$e =NB B%en!ia Branc$ %n!er
&etitionerHs name containing t$e s%m o( =017C15.55 ma!e
&%rs%ant to t$e &rovisions o( =D 0/. -2C a&&raise! &ro&ert' at
=C/81GGG.55 an! or!ere! &etitioner to &a' amo%nt min%s t$e
a!vance! &a'ment o( =1181G5.55 ,$ic$ ,as earlier release! to
#!miral. #!miral move! (or t$e iss%ance o( a ,rit o( e4ec%tion. -2C
grante! an! iss%e! ,rit. # Notice o( Garnis$ment !ate! 7an%ar' 10
1888 ,as serve! b' s$eri(( =astrana %&on t$e manager o( t$e =NB
B%en!ia Branc$. Ho,ever $e ,as in(orme! t$at a "$ol! co!e" ,as
&lace! on t$e acco%nt o( &etitioner. #!miral (ile! motion &ra'ing
t$at an or!er be iss%e! !irecting t$e ban+ to !eliver to s$eri(( t$e
amo%nt e.%ivalent to t$e %n&ai! balance !%e %n!er t$e -2C
!ecision. =etitioner (ile! a motion to li(t t$e garnis$ment on t$e
gro%n! t$at t$e manner o( &a'ment o( t$e e4&ro&riation amo%nt
s$o%l! be !one in installments ,$ic$ t$e res&on!ent -2C 9%!ge
(aile! to state in $is !ecision. #!miral (ile! its o&&osition to t$e
motion. =en!ing resol%tion o( t$e above motions &etitioner (ile! on
7%l' /5 1888 a "Mani(estation" in(orming t$e co%rt t$at &rivate
res&on!ent ,as no longer t$e tr%e an! la,(%l o,ner o( t$e s%b9ect
&ro&ert' beca%se a ne, title over t$e &ro&ert' $a! been registere!
in t$e name o( =$ili&&ine )avings Ban+ *nc. ;=)B< -2C iss%e! an
or!er re.%iring =)B to ma+e available t$e !oc%ments &ertaining to
its transactions over t$e s%b9ect &ro&ert' an! t$e =NB B%en!ia
Branc$ to reveal t$e amo%nt in &etitionerHs acco%nt ,$ic$ ,as
garnis$e! b' res&on!ent s$eri((. *n com&liance ,it$ t$is or!er =)B
(ile! a mani(estation in(orming t$e co%rt t$at it $a! consoli!ate! its
o,ners$i& over t$e &ro&ert' as mortgagee?&%rc$aser at an
e4tra9%!icial (oreclos%re sale $el! on #&ril /5 1887. #(ter several
111
con(erences =)B an! &rivate res&on!ent entere! into a
com&romise agreement ,$ereb' t$e' agree! to !ivi!e bet,een
t$emselves t$e com&ensation !%e (rom t$e e4&ro&riation
&rocee!ings. -2C a&&rove! t$e com&romise agreement an!
or!ere! =NB B%en!ia to release to =)B t$e s%m o( =08C1C5G.0C
,$ic$ corres&on!s to t$e balance o( t$e a&&raise! val%e o( t$e
s%b9ect &ro&ert'. =etitionerHs motion to li(t t$e garnis$ment ,as
!enie!. =etitioner (ile! M- ,$ic$ ,as !%l' o&&ose! b' &rivate
res&on!ent. On t$e ot$er $an! (or (ail%re o( t$e manager o( =NB
B%en!ia to com&l' ,it$ t$e or!er !ate! )e&tember 8 1888
#!miral (ile! t,o s%ccee!ing motions to re.%ire t$e ban+ manager
to s$o, ca%se ,$' $e s$o%l! not be $el! in contem&t o( co%rt.
D%ring t$e $earings con!%cte! (or t$e above motions t$e general
manager o( t$e =NB B%en!ia Branc$ a Mr. #ntonio Ba%tista
in(orme! t$e co%rt t$at $e ,as still ,aiting (or &ro&er a%t$oriBation
(rom t$e =NB $ea! o((ice enabling $im to ma+e a !isb%rsement (or
t$e amo%nt so or!ere!. For its &art &etitioner conten!e! t$at its
(%n!s at t$e =NB B%en!ia Branc$ co%l! neit$er be garnis$e! nor
levie! %&on e4ec%tion (or to !o so ,o%l! res%lt in t$e
!isb%rsement o( &%blic (%n!s ,it$o%t t$e &ro&er a&&ro&riation
re.%ire! %n!er t$e la, citing t$e case o( -e&%blic o( t$e
=$ili&&ines v. =alacio. -es&on!ent trial 9%!ge iss%e! an or!er !ate!
December /1 1888 !en'ing &etitionerHs motion (or reconsi!eration
on t$e gro%n! t$at t$e !octrine en%nciate! in -e&%blic v. =alacio
!i! not a&&l' to t$e case beca%se &etitionerHs =NB #cco%nt No. )?#
/GCDC171C0D1 ,as an acco%nt s&eci(icall' o&ene! (or t$e
e4&ro&riation &rocee!ings o( t$e s%b9ect &ro&ert' &%rs%ant to =res.
Decree No. 0/. -es&on!ent -2C 9%!ge li+e,ise !eclare! Mr.
#ntonio Ba%tista g%ilt' o( contem&t o( co%rt (or $is ine4c%sable
re(%sal to obe' t$e or!er !ate! )e&tember 8 1888 an! t$%s
or!ere! $is arrest an! !etention %ntil $is com&liance ,it$ t$e sai!
or!er. =etitioner an! t$e ban+ manager o( =NB B%en!ia Branc$
t$en (ile! se&arate &etitions (or certiorari ,it$ t$e Co%rt o( #&&eals
,$ic$ ,ere event%all' consoli!ate!. *n a !ecision &rom%lgate! on
7%ne /8 1888 t$e Co%rt o( #&&eals !ismisse! bot$ &etitions (or
lac+ o( merit s%staine! t$e 9%ris!iction o( res&on!ent -2C 9%!ge
over t$e (%n!s containe! in &etitionerHs =NB #cco%nt No. /GCD
C171C0D1 an! a((irme! $is a%t$orit' to lev' on s%c$ (%n!s. *ts
motion (or reconsi!eration $aving been !enie! b' t$e Co%rt o(
#&&eals &etitioner no, (iles t$e &resent &etition (or revie, ,it$
&ra'er (or &reliminar' in9%nction. On November /5 1888 t$e Co%rt
resolve! to iss%e a tem&orar' restraining or!er en9oining
res&on!ent -2C 9%!ge res&on!ent s$eri(( an! t$eir
!ate! December /1 1888 an! t$e ,rit o( garnis$ment iss%e!
&%rs%ant t$ereto. =rivate res&on!ent t$en (ile! its comment to t$e
&etition ,$ile &etitioner (ile! its re&l'. =etitioner not onl' reiterates
t$e arg%ments a!!%ce! in its &etition be(ore t$e Co%rt o( #&&eals
b%t also alleges (or t$e (irst time t$at it $as act%all' t,o acco%nts
,it$ t$e =NB B%en!ia Branc$ to ,it: ;1< #cco%nt No. )?# /GCD
C171C0D1 S e4cl%sivel' (or t$e e4&ro&riation o( t$e s%b9ect
&ro&ert' ,it$ an o%tstan!ing balance o( =88701.80.;/< #cco%nt
No. )?# /G1DC158C5D7 S (or stat%tor' obligations an! ot$er
&%r&oses o( t$e m%nici&al government ,it$ a balance o(
=1755880/1.7/ as o( 7%l' 1/ 1888. Beca%se t$e &etitioner $as
belate!l' allege! onl' in t$is Co%rt t$e e4istence o( t,o ban+
acco%nts it ma' (airl' be as+e! ,$et$er t$e secon! acco%nt ,as
o&ene! onl' (or t$e &%r&ose o( %n!ermining t$e legal basis o( t$e
assaile! or!ers o( res&on!ent -2C 9%!ge an! t$e !ecision o( t$e
Co%rt o( #&&eals an! strengt$ening its reliance on t$e !octrine
t$at &%blic (%n!s are e4em&te! (rom garnis$ment or e4ec%tion as
en%nciate! in -e&%blic v. =alacio. #t an' rate t$e Co%rt ,ill give
&etitioner t$e bene(it o( t$e !o%bt an! &rocee! to resolve t$e
&rinci&al iss%es &resente! base! on t$e (act%al circ%mstances t$%s
allege! b' &etitioner. #!mitting t$at its =NB #cco%nt No. )?# /GCD
C171C0D1 ,as s&eci(icall' o&ene! (or e4&ro&riation &rocee!ings it
$a! initiate! over t$e s%b9ect &ro&ert' &etitioner &oses no
ob9ection to t$e garnis$ment or t$e lev' %n!er e4ec%tion o( t$e
(%n!s !e&osite! t$erein amo%nting to =88701.80. Ho,ever it is
&etitionerHs main contention t$at inasm%c$ as t$e assaile! or!ers
o( res&on!ent -2C 9%!ge involve! t$e net amo%nt o(
=08GCC5G.0C t$e (%n!s garnis$e! b' res&on!ent s$eri(( in e4cess
o( =88701.80 ,$ic$ are &%blic (%n!s earmar+e! (or t$e m%nici&al
governmentHs ot$er stat%tor' obligations are e4em&te! (rom
e4ec%tion ,it$o%t t$e &ro&er a&&ro&riation re.%ire! %n!er t$e la,.
2$ere is merit in t$is contention. 2$e (%n!s !e&osite! in t$e secon!
=NB #cco%nt No. )?# /G1DC158C5D7 are &%blic (%n!s o( t$e
m%nici&al government.
*ss%e: 6ON t$e (%n!s !e&osite! ma' be levie!.
*n t$is 9%ris!iction ,ellDsettle! is t$e r%le t$at &%blic (%n!s
are not s%b9ect to lev' an! e4ec%tion %nless ot$er,ise
&rovi!e! (or b' stat%te. More &artic%larl' t$e &ro&erties o( a
m%nici&alit' ,$et$er real or &ersonal ,$ic$ are necessar'
(or &%blic %se cannot be attac$e! an! sol! at e4ec%tion sale
to satis(' a mone' 9%!gment against t$e m%nici&alit'.
11/
M%nici&al reven%es !erive! (rom ta4es licenses an! mar+et
(ees an! ,$ic$ are inten!e! &rimaril' an! e4cl%sivel' (or
t$e &%r&ose o( (inancing t$e governmental activities an!
(%nctions o( t$e m%nici&alit' are e4em&t (rom e4ec%tion.
2$e (oregoing r%le (in!s a&&lication in t$e case at bar.
#bsent a s$o,ing t$at t$e m%nici&al co%ncil o( Ma+ati $as
&asse! an or!inance a&&ro&riating (rom its &%blic (%n!s an
amo%nt corres&on!ing to t$e balance !%e %n!er t$e -2C
!ecision !ate! 7%ne 0 1887 less t$e s%m o( =88701.80
!e&osite! in #cco%nt No. )?# /GCDC171C0D1 no lev' %n!er
e4ec%tion ma' be vali!l' e((ecte! on t$e &%blic (%n!s o(
&etitioner !e&osite! in #cco%nt No. )?# /G1DC158C5D7.
Nevert$eless t$is is not to sa' t$at &rivate res&on!ent an!
=)B are le(t ,it$ no legal reco%rse. 6$ere a m%nici&alit'
(ails or re(%ses ,it$o%t 9%sti(iable reason to e((ect &a'ment
o( a (inal mone' 9%!gment ren!ere! against it t$e claimant
ma' avail o( t$e reme!' o( man!am%s in or!er to com&el
t$e enactment an! a&&roval o( t$e necessar' a&&ro&riation
or!inance an! t$e corres&on!ing !isb%rsement o(
m%nici&al (%n!s t$ere(or
*n t$e case at bar t$e vali!it' o( t$e -2C !ecision !ate!
7%ne 0 1887 is not !is&%te! b' &etitioner. No a&&eal ,as
ta+en t$ere(rom. For t$ree 'ears no, &etitioner $as
en9o'e! &ossession an! %se o( t$e s%b9ect &ro&ert'
not,it$stan!ing its ine4c%sable (ail%re to com&l' ,it$ its
legal obligation to &a' 9%st com&ensation. =etitioner $as
bene(ite! (rom its &ossession o( t$e &ro&ert' since t$e same
$as been t$e site o( Ma+ati 6est Hig$ )c$ool since t$e
sc$ool 'ear 188GD1887. 2$is Co%rt ,ill not con!one
&etitionerHs blatant re(%sal to settle its legal obligation
arising (rom e4&ro&riation &rocee!ings it $a! in (act
initiate!. *t cannot be overDem&$asiBe! t$at ,it$in t$e
conte4t o( t$e )tateHs in$erent &o,er o( eminent !omain
9%st com&ensation means not onl' t$e correct !etermination
o( t$e amo%nt to be &ai! to t$e o,ner o( t$e lan! b%t also
t$e &a'ment o( t$e lan! ,it$in a reasonable time (rom its
ta+ing. 6it$o%t &rom&t &a'ment com&ensation cannot be
consi!ere! "9%st" (or t$e &ro&ert' o,ner is ma!e to s%((er
t$e conse.%ence o( being imme!iatel' !e&rive! o( $is lan!
,$ile being ma!e to ,ait (or a !eca!e or more be(ore
act%all' receiving t$e amo%nt necessar' to co&e ,it$ $is
loss.
2$e )tateHs &o,er o( eminent !omain s$o%l! be e4ercise!
,it$in t$e bo%n!s o( (air &la' an! 9%stice. *n t$e case at bar
consi!ering t$at val%able &ro&ert' $as been ta+en t$e
com&ensation to be &ai! (i4e! an! t$e m%nici&alit' is in (%ll
&ossession an! %tiliBing t$e &ro&ert' (or &%blic &%r&ose (or
t$ree ;1< 'ears t$e Co%rt (in!s t$at t$e m%nici&alit' $as $a!
more t$an reasonable time to &a' (%ll com&ensation.
Co%rt -esolve! to O-D3- &etitioner M%nici&alit' o( Ma+ati
to imme!iatel' &a' =$ili&&ine )avings Ban+ *nc. an! &rivate
res&on!ent t$e amo%nt o( =08C1C5G.0C. =etitioner is
$ereb' re.%ire! to s%bmit to t$is Co%rt a re&ort o( its
com&liance ,it$ t$e (oregoing or!er ,it$in a nonDe4ten!ible
&erio! o( )*J2: ;G5< D#:) (rom t$e !ate o( recei&t o( t$is
resol%tion.
Pasa# Cit# Government v. C&) o! Manila
Facts: K.D. *si& )ons P #ssociates re&resente! b' Kicente Davi!
*si& entere! into a contract ,it$ t$e Cit' o( =asa' re&resente! b'
t$e t$en Ma'or =ablo C%neta. =%rs%ant to t$e a(oresai! contract
t$e res&on!entDa&&ellee &rocee!e! ,it$ t$e constr%ction o( t$e
ne, =asa' Cit' Hall b%il!ing as &er !%l' a&&rove! &lans an!
s&eci(ications. 2$e res&on!entDa&&ellee accom&lis$e! %n!er
vario%s stages o( constr%ction t$e amo%nt o( ,or+ ;incl%!ing
s%&&lies an! materials< e.%ivalent to an estimate! val%e o(
=171158G.55 o( t$e total contract &rice o( =0810C55.85. 2$e
a&&ellants &ai! onl' t$e total amo%nt o( =1155555.55 to t$e
res&on!entDa&&ellee leaving an amo%nt o( =G1158G.55
imme!iatel' !%e (rom t$e &etitionerDa&&ellants to t$e res&on!entD
a&&ellee. =asa' (aile! to &a'. #ction (or s&eci(ic &er(ormance ,it$
!amages against $erein &etitionersDa&&ellants be(ore t$e
res&on!ent Co%rt. 2$e &arties arrive! at a !ra(t o( amicable
agreement ,$ic$ ,as s%bmitte! to t$e M%nici&al Boar! o( =asa'
Cit' (or its consi!eration. =rotracte! &reDtrial $earings an!
con(erences ,ere $el! ,$ere t$e res&on!ent Co%rt s%ggeste! an!
a!vise! t$at "%n!er t$e &rinci&le o( .%ant%m mer%it t$e &lainti(( is
(ort$,it$ entitle! to at least t$at ,$ic$ is !%e to $im (or !e(en!ants
%n!er t$e contract an! t$at &%blic interest m%st &er(orce re.%ire
t$e contin%it' o( constr%ction o( a &%blic ,or+ &ro9ect instea! o(
!ela'ing its imme!iate com&letion b' litigating %&on tec$nical
gro%n!s ,$ic$ ,o%l! %n!o%bte!l' re!o%n! to &%blic !etriment".
2$e M%nici&al Boar! o( =asa' t$en enacte! Or!inance No. 151/
111
,$ic$ a&&rove! t$e Com&romise #greement an! also a%t$oriBe!
an! em&o,ere! t$e inc%mbent Cit' Ma'or Cla%!io to re&resent t$e
a&&ellant =asa' Cit' Government s%b9ect to t$e (inal a&&roval o(
t$e res&on!ent Co%rt $erein. Co%rt a&&rove! t$e sai! Com&romise
#greement incl%!ing a Mani(estation an! #!!en!%m t$ereto. On
#&ril 15 18G8 t$e a&&ellants (ile! an %rgent motion see+ing a
!eclaration o( legalit' o( t$e original contract an! agreement !ate!
#%g%st 0 18G0 (rom t$e res&on!ent Co%rt. Co%rt iss%e! an or!er
!eclaring t$at t$e original contract is legal an! vali!. Co%rt grante!
an or!er o( e4ec%tion &%rs%ant to ,$ic$ a ,rit o( e4ec%tion ,as
iss%e!. #&&lication (or an! notice o( garnis$ment ,ere ma!e an!
e((ecte! %&on t$e (%n!s o( a&&ellant =asa' Cit' Government ,it$
t$e =NB. =asa': &remat%re t$e 85D!a' sti&%lation $as not e4&ire!A
t$e obligations ,ere reci&rocal t$e contractor $as not set %& a ne,
&er(ormance bon!A an! )$eri(( cannot garnis$ tr%st (%n!s o( t$e
cit'. 2C: Contractor com&lie! s%bstantiall' garnis$ment m%st
&rocee!.
*ss%e: 6ON t$e CF* erre! in re(%sing to .%as$ t$e ,rit o( e4ec%tion
it iss%e!. :3).
2$e t,o &%r&oses o( a com&romise agreement are
en%nciate! in #rticle /5/8 o( t$e Ne, Civil Co!e to ,it: "#.
/5/8. # com&romise is a contract ,$ereb' t$e &arties b'
ma+ing reci&rocal concessions avoi! a litigation or &%t an
en! to one alrea!' commence!." 2$e (irst &%r&ose D "to
avoi! a litigation" D occ%rs ,$en t$ere is a t$reat o( an
im&en!ing litigation. #t t$is &oint no case $as 'et reac$e!
t$e co%rts. 2$e moment a case $as been (ile! in co%rt t$en
t$e secon! &%r&ose D "to &%t an en! to one alrea!'
commence!" D a&&lies. *n t$e $erein case 6e are
concerne! ,it$ t$e secon! &%r&ose. 2$e latter &%r&ose is
given e((ect in #rticle /517 o( t$e Ne, Civil Co!e ,$ic$
rea!s: "#rticle /517. # com&romise $as %&on t$e &arties
t$e e((ect an! a%t$orit' o( res 9%!icataA b%t t$ere s$all be no
e4ec%tion e4ce&t in com&liance ,it$ a 9%!icial com&romise."
# com&romise agreement not contrar' to la, &%blic or!er
&%blic &olic' morals or goo! c%stoms is a vali! contract
,$ic$ is t$e la, bet,een t$e &arties t$emselves. #
9%!gment on a com&romise is a (inal an! e4ec%tor. *t is
imme!iatel' e4ec%tor in t$e absence o( a motion to set t$e
same asi!e on t$e gro%n! o( (ra%! mista+e or !%ress.
*n (act in t$e $erein case be(ore @s e4ec%tion $as alrea!'
been iss%e!. Consi!ering t$is in t$e lig$t o( #rticle /501 o(
t$e Ne, Civil Co!e to ,it: "#rt. /501. *( one o( t$e &arties
(ails or re(%ses to abi!e b' t$e com&romise t$e ot$er &art'
ma' eit$er en(orce t$e com&romise or regar! it as
rescin!e! an! insist %&on $is original !eman!."
it is obvio%s t$at t$e res&on!entDa&&ellee !i! not onl'
s%ccee! in en(orcing t$e com&romise b%t sai! &lainti((D
a&&ellee li+e,ise ,ants to rescin! t$e sai! com&romise. *t is
clear (rom t$e lang%age o( t$e la, s&eci(icall' #rticle /501
o( t$e Ne, Civil Co!e t$at one o( t$e &arties to a
com&romise $as t,o o&tions: 1< to en(orce t$e com&romiseA
or /< to rescin! t$e same an! insist %&on $is original
!eman!. 2$e res&on!entDa&&ellee in t$e case $erein be(ore
@s ,ants to avail o( bot$ o( t$ese o&tions. 2$is can not be
!one. 2$e res&on!entDa&&ellee cannot as+ (or rescission o(
t$e com&romise agreement a(ter it $as alrea!' en9o'e! t$e
(irst o&tion o( en(orcing t$e com&romise b' as+ing (or a ,rit
o( e4ec%tion res%lting t$ereb' in t$e garnis$ment o( t$e
=asa' Cit' (%n!s !e&osite! ,it$ t$e =$ili&&ine National Ban+
,$ic$ event%all' ,as !elivere! to t$e res&on!entDa&&ellee.
@&on t$e iss%ance o( t$e ,rit o( e4ec%tion t$e &etitionerD
a&&ellants move! (or its .%as$al alleging among ot$er
t$ings t$e e4em&tion o( t$e government (rom e4ec%tion.
2$is move on t$e &art o( t$e &etitionerDa&&ellant is at (irst
glance la%!able (or "all government (%n!s !e&osite! ,it$
t$e =$ili&&ine National Ban+ b' an' agenc' or
instr%mentalit' o( t$e government ,$et$er b' ,a' o(
general or s&ecial !e&osit remain government (%n!s an!
ma' not be s%b9ect to garnis$ment or lev' ;Commissioner o(
=%blic Hig$,a's vs. )an Diego LD15588 11 )C-# G1G UFeb.
18 1875V<. B%t inasm%c$ as an or!inance $as alrea!' been
enacte! e4&ressl' a&&ro&riating t$e amo%nt o( =G1158G.55
o( &a'ment to t$e res&on!entDa&&ellee t$en t$e $erein
case is covere! b' t$e e4ce&tion to t$e general r%le state!
in t$e case o( -e&%blic vs. =alacio: "7%!gments against a
)tate in cases ,$ere it $as consente! to be s%e! generall'
o&erate merel' to li.%i!ate an! establis$ &lainti((Hs claim in
t$e absence o( e4&ress &rovisionA ot$er,ise t$e' cannot be
en(orce! b' &rocesses o( t$e la,A an! it is (or t$e legislat%re
to &rovi!e (or t$e &a'ment in s%c$ manner as sees (it."
110
Having establis$e! t$at t$e com&romise agreement ,as
(inal an! imme!iatel' e4ec%tor' an! in (act as alrea!'
en(orce! t$e res&on!ent co%rt ,as in error ,$ere it still
entertaine! t$e s%&&lemental com&laint (ile! b' t$e
res&on!entDa&&ellee (or b' t$en t$e res&on!ent Co%rt $a!
no more 9%ris!iction over t$e s%b9ect matter. 6$en a
!ecision $as become (inal an! e4ec%tor' t$e co%rt no
longer $as t$e &o,er an! 9%ris!iction to alter amen! or
revo+e an! its onl' &o,er t$ereo( is to or!er its e4ec%tion.
#(ter t$e &er(ection o( an a&&eal t$e trial co%rt loses
9%ris!iction over its 9%!gment an! cannot vacate t$e same.
63 (in! no error in t$e or!er o( t$e res&on!ent Co%rt !ate!
7%l' /1 18G8. From t$e rea!ing o( t$e &remises an!
&rovisions o( t$e contract an! agreement ,$ic$ ,as
"(ormall' con(irme! an! o((iciall' a&&rove! b' t$e &arties"
in t$e com&romise agreement later entere! into b' t$e
same &arties s%b9ect onl' to t$e en%merate! c$anges
an!?or mo!i(ications it is obvio%s t$at t$e contracting
&arties envisione! a stage b' stage constr%ction ;on t$e
&art o( t$e res&on!entDa&&ellee< an! &a'ment ;on t$e &art
o( t$e !e(en!antDa&&ellant<.
)%bD&aragra&$ B o( &aragra&$ 1 o( t$e Com&romise
#greement to ,it: "B. 2$at imme!iatel' %&on (inal
a&&roval $ereo( b' t$is Honorable Co%rt t$e &lainti((
contractor ,ill s%bmit an! (ile in (avor o( =asa' Cit'
Government a ne, &er(ormance bon! in t$e amo%nt
re.%ire! b' &ertinent la, r%les an! reg%lations in
&ro&ortion to t$e remaining val%e or cost o( t$e %n(inis$e!
,or+ o( t$e constr%ction as &er a&&rove! &lans an!
s&eci(ications . . ."
-ea! toget$er ,it$ t$e stageDb'Dstage constr%ction an!
&a'ment a&&roac$ ,o%l! inevitabl' lea! to t$e concl%sion
t$at t$e &arties to t$e com&romise contem&late! a !ivisible
obligation necessitating t$ere(ore a &er(ormance bon! "in
&ro&ortion to" t$e %ncom&lete! ,or+.
6$at is cr%cial in s%bD&aragra&$ B o( &aragra&$ 1 o( t$e
com&romise agreement are t$e ,or!s "in &ro&ortion." *( t$e
&arties reall' inten!e! t$e legal rate o( /5Y &er(ormance
bon! to re(er to t$e ,$ole %n(inis$e! ,or+ t$en t$e
&rovision s$o%l! $ave re.%ire! t$e &lainti(( contractor to
s%bmit an! (ile a ne, &er(ormance bon! to cover t$e
remaining val%e?cost o( t$e %n(inis$e! ,or+ o( t$e
constr%ction. @sing t$e ,or!s in &ro&ortion t$en
signi(icantl' c$ange! t$e meaning o( t$e &aragra&$ to
%ltimatel' mean a &er(ormance bon! e.%al to /5Y o( t$e
ne4t stage o( ,or+ to be !one.
#n! 6e note t$at in t$e Contract an! #greement t$e
res&on!entDa&&ellee ,as allo,e! to (ile a &er(ormance bon!
o( =////C5.55 ,$ic$ is b%t CY o( t$e total bi! o(
=0810C55.85. # sec%rit' bon! ,as li+e,ise (ile! ,it$ an
amo%nt o( =87/85.55. 2$e s%m total o( bon! t$en (ile! ,as
=1/5C05.55 ,$ic$ is 9%st G.CY o( t$e total bi!. *t is rat$er
c%rio%s ,$' all o( a s%!!en t$e &etitionersDa&&ellants are
insisting on a /5Y &er(ormance bon! o( t$e entire
%n(inis$e! ,or+ ,$en t$e' ,ere .%ite content ,it$ a bon!
9%st CY o( t$e entire ,or+. For @s to allo, t$e &etitionersD
a&&ellants to a!amantl' stic+ to t$e /5Y &er(ormance bon!
,o%l! be tantamo%nt to allo,ing t$em to eva!e t$eir
obligation in t$e com&romise agreement. 2$is cannot be
allo,e!. 2$e bon! o( a contractor (or a &%blic ,or+ s$o%l!
not be e4ten!e! be'on! t$e reasonable intent as gat$ere!
(rom t$e &%r&ose an! lang%age o( t$e instr%ment constr%e!
in connection ,it$ t$e &ro&osals &lans an! s&eci(ications
an! contract.
2$e &remi%m o( t$e bon! ,ill be siBeable an! ,ill eat %& t$e
&ro(it o( t$e contractor ,$o is (ace! ,it$ t$e (l%ct%ation o(
&rices o( materials !%e to in(lation an! !eval%ation. -ig$t
no, man' contractors cannot &rocee! ,it$ t$e
im&lementation o( t$eir contracts beca%se o( t$e
e4traor!inar' rise in cost o( materials an! labor. No
contractor ,o%l! be ,illing to bi! (or &%blic ,or+s contracts
%n!er t$e o&&ressive inter&retation b' &etitionersD
a&&ellants.
#gain t$e res&on!ent Co%rt ,as correct in r%ling t$at t$e
s%bmission o( t$e bon! ,as not a con!ition &rece!ent to t$e
&a'ment o( =G1158G.55 to t$e &lainti((. No,$ere in t$e
Contact an! #greement nor in t$e Com&romise #greement
co%l! be (o%n! t$e (act t$at &a'ment b' t$e &etitionerD
a&&ellants o( t$e amo%nt o( =G1158G.55 ,as !e&en!ent
%&on t$e s%bmission b' t$e res&on!entDa&&ellee o( t$e
&er(ormance bon!. *t cannot be arg%e! t$at reci&rocal
obligation ,as create! in t$e Com&romise #greement (or
t$e obligation to &a' on t$e &art o( t$e &etitionersD
a&&ellants ,as establis$e! several 'ears ago ,$en t$e
11C
res&on!entsDa&&ellee (inis$e! some o( t$e stages o(
constr%ction. #n! t$is arg%ment is alrea!' moot an!
aca!emic (or t$e amo%nt o( =G1158G.55 $as alrea!' been
collecte! t$ro%g$ e4ec%tion an! garnis$ment %&on t$e
(%n!s o( =asa' Cit' ,it$ t$e =$ili&&ine National Ban+.
*nasm%c$ as t$e &arties in t$e $erein case $ave agree! in
t$e Com&romise #greement to ,it: "1. 2$at ,it$in a
similar &erio! t$e !e(en!ant =asa' Cit' Government s$all
&a' an! remit to &lainti(( contractor an amo%nt e.%ivalent
to t$ree ;1Y< &ercent o( t$e above mentione! amo%nt o( )*J
H@ND-3D 2H*-233N N*N32:D)*J =3)O) ;=G1158G.55< (or
an! as a!verse attorne'Hs (ees in t$is caseA . . . "
Municipalit# o! Paoa#- )locos ,orte v. Manaois
Facts: 2eo!oro Manaois $aving obtaine! a 9%!gment against t$e
m%nici&alit' o( =aoa' *locos Norte in civil case No. 85/G o( t$e
Co%rt o( First *nstance o( =angasinan 7%!ge De G%Bman o( sai!
&rovince iss%e! a ,rit o( e4ec%tion against t$e !e(en!ant
m%nici&alit'. *n com&liance ,it$ sai! ,rit t$e =rovincial )$eri(( o(
*locos Norte levie! %&on an! attac$e! certain &ro&erties. On 7%l'
/G 1808 t$e =rovincial Fiscal o( *locos Norte in re&resentation o(
t$e m%nici&alit' o( =aoa' (ile! a &etition in t$e Co%rt o( First
*nstance o( =angasinan as+ing (or t$e !issol%tion o( t$at
attac$ment o( lev'. 7%!ge De G%Bman in $is or!er o( October G
1808 !enie! t$e &etition (or t$e !issol%tion o( t$e attac$mentA a
M- also !enie!. *nstea! o( a&&ealing (rom t$at or!er t$e
m%nici&alit' o( =aoa' $as (ile! t$e &resent &etition (or certiorari
,it$ t$e ,rit o( &reliminar' in9%nction as+ing t$at t$e or!er o(
res&on!ent 7%!ge !ate! October G 180G be reverse! an! t$at t$e
attac$ment o( t$e &ro&erties o( t$e m%nici&alit' be !issolve!.
*ss%e: 6ON &ro&erties ma' be levie!.
2$ere can be no .%estion t$at &ro&erties (or &%blic %se $el!
b' m%nici&al cor&oration are not s%b9ect to lev' an!
e4ec%tion. 2$e a%t$orities are %nanimo%s on t$is &oint. 2$is
Co%rt in t$e case o( Ki%!a !e 2antoco vs. M%nici&al Co%ncil
o( *loilo ;08 =$il. C/< a(ter citing Manresa t$e ,or+s o(
McW%illin an! Dillon on M%nici&al Cor&orations an! Cor&%s
7%ris $el! t$at &ro&erties (or &%blic %se li+e tr%c+s %se! (or
s&rin+ling t$e streets &olice &atrol ,agons &olice stations
&%blic mar+ets toget$er ,it$ t$e lan! on ,$ic$ t$e' stan!
are e4em&t (rom e4ec%tion. 3ven &%blic reven%es o(
m%nici&al cor&orations !estine! (or t$e e4&enses o( t$e
m%nici&alit' are also e4em&t (rom t$e e4ec%tion. 2$e
reason be$in! t$is e4em&tion e4ten!e! to &ro&erties (or
&%blic %se an! &%blic m%nici&al reven%es is t$at t$e' are
$el! in tr%st (or t$e &eo&le inten!e! an! %se! (or t$e
accom&lis$ment o( t$e &%r&oses (or ,$ic$ m%nici&al
cor&orations are create! an! t$at to s%b9ect sai! &ro&erties
an! &%blic (%n!s to e4ec%tion ,o%l! materiall' im&e!e
even !e(eat an! in some instances !estro' sai! &%r&ose.
=ro&ert' $o,ever ,$ic$ is &atrimonial an! ,$ic$ is $el! b'
m%nici&alit' in its &ro&rietar' ca&acit' is treate! b' great
,eig$t o( a%t$orit' as t$e &rivate asset o( t$e to,n an! ma'
be levie! %&on an! sol! %n!er an or!inar' e4ec%tion. 2$e
same r%le a&&lies to m%nici&al (%n!s !erive! (rom
&atrimonial &ro&erties (or instance it $as been $el! t$at
s$ares o( stoc+s $el! b' m%nici&al cor&orations are s%b9ect
to e4ec%tion. *( t$is is tr%e ,it$ more reason s$o%l! income
or reven%e coming (rom t$ese s$ares o( stoc+ in t$e (orm o(
interest or !ivi!en!s be s%b9ect to e4ec%tionT
2$e (is$er' or m%nici&al ,aters o( t$e to,n o( =aoa' *locos
Norte ,$ic$ $a! been &arcele! o%t or !ivi!e! into lots an!
later let o%t to &rivate &ersons (or (is$ing &%r&oses at an
ann%al rental are clearl' not s%b9ect to e4ec%tion. *n t$e (irst
&lace t$e' !o not belong to t$e m%nici&alit'. 2$e' ma' ,ell
be regar!e! as &ro&ert' o( )tate. 6$at t$e m%nici&alit' o(
=aoa' $ol! is merel' ,$at ma' be consi!ere! t$e %s%(r%ct
or t$e rig$t to %se sai! m%nici&al ,aters grante! to it b'
section /1/1 o( t$e -evise! #!ministrative Co!e. Grant o(
(is$er'. S # m%nici&al co%ncil s$all $ave a%t$orit' (or
&%r&oses o( &ro(it to grant t$e e4cl%sive &rivileges o(
(is$er' or rig$t to con!%ct a (is$Dbree!ing gro%n! ,it$in an'
!e(inite &ortion or area o( t$e m%nici&al ,aters. "M%nici&al
,aters" as $erein %se! incl%!e not onl' streams la+es an!
ti!al ,aters incl%!e ,it$in t$e m%nici&alit' not being t$e
s%b9ect o( &rivate o,ners$i& b%t also marine ,aters incl%!e
bet,een t,o lines !ra,n &er&en!ic%lar to t$e general coast
line (rom &oints ,$ere t$e bo%n!ar' lines o( t$e
m%nici&alit' to%c$ t$e sea at $ig$ ti!e an! t$ir! line
&arallel ,it$ t$e general coast line an! !istant (rom it t$ree
marine leag%es. 6$ere t,o m%nici&alities are so sit%ate! on
o&&osite s$ores t$at t$ere is less t$an si4 marine leag%es o(
11G
marine ,aters bet,een t$em t$e t$ir! line s$all be a line
e.%all' !istant (rom t$e o&&osite s$ores o( t$e res&ective
m%nici&alities.
No, is t$is &artic%lar %s%(r%ct o( t$e m%nici&alit' o( =aoa'
over its m%nici&al ,aters s%b9ect to e4ec%tion to en(orce a
9%!gment against t$e to,nT 6e are not &re&are! to ans,er
t$is .%estion in t$e a((irmative beca%se t$ere are &o,er(%l
reasons against its &ro&riet' an! legalit'. *n t$e (irst &lace
it is not a %s%(r%ct base! on or !erive! (rom an in$erent
rig$t o( t$e to,n. *t is base! merel' on a grant more or less
tem&orar' ma!e b' t$e Legislat%re. 2a+e t$e rig$t o(
(is$er' over t$e sea or marine ,aters bor!ering a certain
m%nici&alit'. 2$ese marine ,aters are or!inaril' (or &%blic
%se o&en to navigation an! (is$ing b' t$e &eo&le. 2$e
Legislat%re t$r% section /1/1 o( t$e #!ministrative Co!e as
alrea!' state! sa, (it to grant t$e %s%(r%ct o( sai! marine
,aters (or (is$er' &%r&ose to t$e to,ns bor!ering sai!
,aters. )ai! to,ns $ave no visite! rig$t over sai! marine
,aters. 2$e Legislat%re (or reasons it ma' !eem vali! or as
a matter o( &%blic &olic' ma' at an' time re&eal or mo!i('
sai! section /1/1 an! revo+e t$is grant to coastal to,ns
an! o&en t$ese marine ,aters to t$e &%blic. Or t$e
Legislat%re ma' grant t$e %s%(r%ct or rig$t o( (is$er' to t$e
&rovinces concerne! so t$at sai! &rovinces ma' o&erate or
a!minister t$em b' leasing t$em to &rivate &arties.
#ll t$is onl' goes to &rove t$at t$e m%nici&alit' o( =aoa' is
not $ol!ing t$is %s%(r%ct or rig$t o( (is$er' in a &ermanent or
absol%te manner so as to enable it to !is&ose o( it or to
allo, it to be ta+en a,a' (rom it as its &ro&ert' t$ro%g$
e4ec%tion.
#not$er reason against s%b9ecting t$is %s%(r%ct or rig$t o(
(is$er' over m%nici&al ,aters to e4ec%tion is t$at i( t$is
,ere to be allo,e! an! t$is rig$t sol! on e4ec%tion t$e
b%'er ,o%l! imme!iatel' ste& into t$e s$oes o( t$e
9%!gmentD!ebtor m%nici&alit'. )%c$ b%'er &res%mabl' b%'s
onl' t$e rig$t o( t$e m%nici&alit'. He !oes not b%' t$e
(is$er' itsel( nor t$e m%nici&al ,aters beca%se t$at belongs
to t$e )tate. #ll t$at t$e b%'er mig$t !o ,o%l! be to let o%t
or rent to &rivate in!ivi!%als t$e (is$er' rig$ts over t$e lots
into ,$ic$ t$e m%nici&al ,aters $a! been &arcele! o%t or
!ivi!e! an! t$at is a(ter &%blic bi!!ing. 2$is $e m%st !o
beca%se t$at is t$e onl' rig$t grante! to t$e m%nici&alit' b'
t$e Legislat%re a rig$t to be e4ercise! in t$e manner
&rovi!e! b' la, namel' to rent sai! (is$er' lots a(ter &%blic
bi!!ing. ;)ee sec. /1/1 o( t$e #!ministrative Co!e in
connection ,it$ sec. /118 o( t$e same Co!e.< 2$en ,e s$all
$ave a sit%ation rat$er anomalo%s to be s%re o( a &rivate
in!ivi!%al con!%cting &%blic bi!!ing renting to t$e $ig$est
bi!!ers (is$er' lots over m%nici&al ,aters ,$ic$ are
&ro&ert' o( t$e )tate an! a&&ro&riating t$e res%lts to $is
o,n &rivate %se. 2$e im&ro&riet' i( not illegalit' o( s%c$ a
contingenc' is rea!il' a&&arent. B%t t$at is not all. 2$e
sit%ation imagine! im&lies t$e !e&rivation o( t$e m%nici&al
cor&oration o( a so%rce o( a s%bstantial income e4&ressl'
&rovi!e b' la,. Beca%se o( all t$is ,e $ol! t$at t$e rig$t or
%s%(r%ct o( t$e to,n o( =aoa' over its m%nici&al ,aters
&artic%larl' t$e (ort' o!! (is$er' lots incl%!e! in t$e
attac$ment b' t$e )$eri(( is not s%b9ect to e4ec%tion.
B%t ,e $ol! t$at t$e reven%e or income coming (rom t$e
renting o( t$ese (is$er' lots is certainl' s%b9ect to e4ec%tion.
*t ma' be &ro(itable i( not necessar' to !isting%is$ t$is +in!
o( reven%e (rom t$at !erive! (rom ta4es m%nici&al licenses
an! mar+et (ees are &rovi!e! (or an! im&ose! b' t$e la,
t$e' are inten!e! &rimaril' an! e4cl%sivel' (or t$e &%r&ose
o( (inancing t$e governmental activities an! (%nctions o(
m%nici&al cor&orations. *n (act t$e real estate ta4es
collecte! b' a m%nici&alit' !o not all go to it. # &ortion
t$ereo( goes to t$e &rovince in t$e &ro&ortion &rovi!e! (or
b' la,. For t$e same reason m%nici&al mar+ets are
establis$e! not onl' to &rovi!e a &lace ,$ere t$e &eo&le
ma' sell an! b%' commo!ities b%t also to &rovi!e &%blic
reven%es (or t$e m%nici&alit'. 2o man' to,ns mar+et (ees
constit%te t$e b%l+ o( t$eir assets an! incomes. 2$ese
reven%es are (i4e! an! !e(inite so m%c$ so t$at t$e ann%al
a&&ro&riations (or t$e e4&enses o( t$e m%nici&alities are
base! on t$ese reven%es. Not so ,it$ t$e income !erive!
(orm (is$eries. *n t$e (irst &lace t$e %s%(r%ct over m%nici&al
,aters ,as grante! b' t$e Legislat%re merel' to $el& or
bolster %& t$e econom' o( m%nici&al government. 2$ere are
man' to,ns in t$e =$ili&&ines s&eciall' in t$e interior
,$ic$ !o not $ave m%nici&al ,aters (or (is$er' &%r&ose an!
'et ,it$o%t m%c$ so%rce o( reven%e t$e' can (%nction
,$ic$ goes to &rove t$at t$is +in! o( reven%e is not
in!is&ensable (or t$e &er(ormance o( governmental
117
(%nctions. *n t$e secon! &lace t$e amo%nt o( t$is income is
(ar (rom !e(inite or (i4e!. *t !e&en!s %&on t$e amo%nts
,$ic$ &ros&ective bi!!ers or lessees are ,illing to &a'. *(
(is$ing on t$ese marine ,ater la+es an! rivers in t$e
m%nici&alit' is goo! t$e bi!s ,o%l! be $ig$ an! t$e income
,o%l! be s%bstantial. *( t$e (is$ in t$ese ,aters is !e&lete!
or i( (or some reasons or anot$er (is$ing is not &ro(itable
t$en t$e income ,o%l! be greatl' re!%ce!. *n ot$er ,or!s
to man' m%nici&alities engage! in t$is b%siness o( letting
o%t m%nici&al ,aters (or (is$ing &%r&oses it is a sort o(
si!eline so t$at even (or (is$ing &%r&oses it is sort o(
si!eline so t$at even ,it$o%t it t$e m%nici&alit' ma' still
contin%e (%nctioning an! &er(orm its essential !%ties as
s%c$ m%nici&al cor&orations.
6e call t$is activit' o( m%nici&alities in renting m%nici&al
,aters (or (is$ing &%r&oses as a b%siness (or t$e reasons
t$at t$e la, itsel( ;)ec. /1/1 #!ministrative Co!e alrea!'
mentione! an! .%ote!< allo,e! sai! m%nici&alities to
engage in it (or &ro(it. #n! it is b%t 9%st t$at a to,n so
engage! s$o%l! &a' an! li.%i!ate obligations contracte! in
connection ,it$ sai! (is$ing b%siness ,it$ t$e income
!erive! t$ere(rom.
118

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