Summary: Gonzalez vs. Macaraig (GR 87636, 19 Novem er 199!" Gonzalez vs. Macaraig #GR 87636, 19 Novem er 199!

$ %ac&s: 'n 16 (ecem er 1988, )ongress *asse+ ,ouse -ill 19186, or &.e General /**ro*ria&ions -ill 0or &.e %iscal 1ear 1989. /s *asse+, i& elimina&e+ or +ecrease+ cer&ain i&ems inclu+e+ in &.e *ro*ose+ u+ge& su mi&&e+ y &.e 2resi+en&. 2ursuan& &o &.e cons&i&u&ional *rovision on &.e *assage o0 ills, )ongress *resen&e+ &.e sai+ -ill &o &.e 2resi+en& 0or consi+era&ion an+ a**roval. 'n 39 (ecem er 1988, &.e 2resi+en& signe+ &.e -ill in&o la4, an+ +eclare+ &.e same &o .ave ecome R/ 6688. 5n &.e *rocess, S*ecial 2rovisions an+ Sec&ion 66, a 7General 2rovision,7 4ere ve&oe+. 'n 3 %e ruary 1989, &.e Sena&e,in Resolu&ion 381 (7/u&.orizing an+ (irec&ing &.e )ommi&&ee on %inance &o -ring in &.e Name o0 &.e Sena&e o0 &.e 2.ili**ines &.e 2ro*er Sui& 4i&. &.e Su*reme )our& o0 &.e 2.ili**ines con&es&ing &.e )ons&i&u&ionali&y o0 &.e 8e&o y &.e 2resi+en& o0 S*ecial an+ General 2rovisions, *ar&icularly Sec&ion 66, o0 &.e General /**ro*ria&ion -ill o0 1989 (,.-. No. 19186" an+ %or '&.er 2ur*oses7" 4as a+o*&e+. 'n 11 /*ril 1989, &.e 2e&i&ion 0or 2ro.i i&ion9 Man+amus 4as 0ile+ y Ne*&ali /. Gonzales, :rnes&o M. Mace+a, /l er&o G. Romulo, ,e.erson ;. /lvarez, :+gar+o <. /ngara, /ga*i&o /. /=uino, ;eo0is&o ;. Guingona, <r., :rnes&o %. ,errera, <ose (. >ina, <r., <o.n 'sme?a, 8icen&e ;. 2a&erno, Rene /. Saguisag, >e&icia Ramos@S.a.ani, Mamin&al / +ul <. ;amano, Aig er&o :. ;a?a+a, <ovi&o R. Salonga, 'rlan+o S. Merca+o, <uan 2once :nrile, <ose*. :s&ra+a, So&ero >aurel, /=uilino 2imen&el, <r., San&anina Rasul, 8ic&or Biga, as mem ers an+ eC@o00icio mem ers o0 &.e )ommi&&ee on %inance o0 &.e Sena&e an+ as 7su s&an&ial &aC*ayers 4.ose vi&al in&eres&s may e a00ec&e+ y &.is case,7 4i&. a *rayer 0or &.e issuance o0 a Ari& o0 2reliminary 5nDunc&ion an+ Res&raining 'r+er, assailing mainly &.e cons&i&u&ionali&y or legali&y o0 &.e 2resi+en&ial ve&o o0 Sec&ion 66, an+ seeEing &o enDoin )a&alino Macaraig, <r., 8icen&e <ayme, )arlos (ominguez, %ulgencio %ac&oran, %iorello :s&uar, >our+es Fuisum ing, Raul Mangla*us, /l0re+o -engson, <ose )once*cion, >uis San&os, Mi&a 2ar+o (e ;avera, Rainerio Reyes, Guillermo )arague, Rosalina )aDucom an+ :u0emio ). (omingo 0rom im*lemen&ing R/ 6688. No Res&raining 'r+er 4as issue+ y &.e Su*reme )our&. Gonzales e& al.Gs cause is anc.ore+ on &.e 0ollo4ing groun+s: (1" &.e 2resi+en&Gs line@ve&o *o4er as regar+s a**ro*ria&ion ills is limi&e+ &o i&em9s an+ +oes no& cover *rovision9sH &.ere0ore, s.e eCcee+e+ .er au&.ori&y 4.en s.e ve&oe+ Sec&ion 66 (%1 G89" an+ Sec&ion 16 (%1 G9!" 4.ic. are *rovisionsH (3" 4.en &.e 2resi+en& o Dec&s &o a *rovision o0 an a**ro*ria&ion ill, s.e canno& eCercise &.e i&em@ve&o *o4er u& s.oul+ ve&o &.e en&ire illH (3" &.e i&em@ve&o *o4er +oes no& carry 4i&. i& &.e *o4er &o s&riEe ou& con+i&ions or res&ric&ions 0or &.a& 4oul+ e legisla&ion, in viola&ion o0 &.e +oc&rine o0 se*ara&ion o0 *o4ersH an+ (I" &.e *o4er o0 augmen&a&ion in /r&icle 85, Sec&ion 36 #6$ o0 &.e 1987 )ons&i&u&ion, .as &o e *rovi+e+ 0or y la4 an+, &.ere0ore, )ongress is also ves&e+ 4i&. &.e *reroga&ive &o im*ose res&ric&ions on &.e eCercise o0 &.a& *o4er. ;.e Solici&or General, as counsel 0or Macaraig e& al., coun&ers &.a& &.e issue in &.e *resen& case is a *oli&ical =ues&ion eyon+ &.e *o4er o0 &.is )our& &o +e&ermineH &.a& Gonzales e& al. .a+ a *oli&ical reme+y, 4.ic. 4as &o overri+e &.e ve&oH &.a& Sec&ion 66 is a 7ri+er7 ecause i& is eC&raneous &o &.e /**ro*ria&ions /c& an+, &.ere0ore, meri&s &.e 2resi+en&Gs ve&oH &.a& &.e *o4er o0 &.e 2resi+en& &o augmen& i&ems in &.e a**ro*ria&ions 0or &.e eCecu&ive ranc.es .a+ alrea+y een *rovi+e+ 0or in &.e -u+ge& >a4, s*eci0ically Sec&ions II an+ I6 o0 2( 1177, as amen+e+ y R/ 667! (I /ugus& 1988"H an+ &.a& &.e 2resi+en& is em*o4ere+ y &.e )ons&i&u&ion &o ve&o *rovisions or o&.er 7+is&inc& an+ severa le *ar&s7 o0 an /**ro*ria&ions -ill.

5ssue #1$: A.e&.er &.e 2resi+en& eCcee+e+ &.e i&em@ve&o *o4er accor+e+ y &.e )ons&i&u&ion (A.e&.er &.e 2resi+en& .as &.e *o4er &o ve&o 7*rovisions7 o0 an /**ro*ria&ions -ill" ,el+ #1$: N'. ;.e ve&o *o4er o0 &.e 2resi+en& is eC*resse+ in /r&icle 85, Sec&ion 37 o0 &.e 1987 )ons&i&u&ion. 2aragra*. (1" re0ers &o &.e general ve&o *o4er o0 &.e 2resi+en& an+ i0 eCercise+ 4oul+ resul& in &.e ve&o o0 &.e en&ire ill, as a general rule. 2aragra*. (3" is 4.a& is re0erre+ &o as &.e i&em@ve&o *o4er or &.e line@ve&o *o4er. 5& allo4s &.e eCercise o0 &.e ve&o over a *ar&icular i&em or i&ems in an a**ro*ria&ion, revenue, or &ari00 ill. /s s*eci0ie+, &.e 2resi+en& may no& ve&o less &.an all o0 an i&em o0 an /**ro*ria&ions -ill. 5n o&.er 4or+s, &.e *o4er given &.e eCecu&ive &o +isa**rove any i&em or i&ems in an /**ro*ria&ions -ill +oes no& gran& &.e au&.ori&y &o ve&o a *ar& o0 an i&em an+ &o a**rove &.e remaining *or&ion o0 &.e same i&em. No&4i&.s&an+ing &.e elimina&ion in /r&icle 85, Sec&ion 37 (3" o0 &.e 1987 )ons&i&u&ion o0 any re0erence &o &.e ve&o o0 a *rovision, &.e eC&en& o0 &.e 2resi+en&Gs ve&o *o4er as *reviously +e0ine+ y &.e 1936 )ons&i&u&ion .as no& c.ange+. ;.is is ecause &.e elimina&e+ *roviso merely *ronounces &.e asic *rinci*le &.a& a +is&inc& an+ severa le *ar& o0 a ill may e &.e su Dec& o0 a se*ara&e ve&o. ;.e res&ric&ive in&er*re&a&ion urge+ y Gonzales e& al. &.a& &.e 2resi+en& may no& ve&o a *rovision 4i&.ou& ve&oing &.e en&ire ill no& only +isregar+s &.e asic *rinci*le &.a& a +is&inc& an+ severa le *ar& o0 a ill may e &.e su Dec& o0 a se*ara&e ve&o u& also overlooEs &.e )ons&i&u&ional man+a&e &.a& any *rovision in &.e general a**ro*ria&ions ill s.all rela&e s*eci0ically &o some *ar&icular a**ro*ria&ion &.erein an+ &.a& any suc. *rovision s.all e limi&e+ in i&s o*era&ion &o &.e a**ro*ria&ion &o 4.ic. i& rela&es. 5n o&.er 4or+s, in &.e &rue sense o0 &.e &erm, a *rovision in an /**ro*ria&ions -ill is limi&e+ in i&s o*era&ion &o some *ar&icular a**ro*ria&ion &o 4.ic. i& rela&es, an+ +oes no& rela&e &o &.e en&ire ill. ;.e 2resi+en& *rom*&ly ve&oe+ Sec&ion 66 (%1 G89" an+ Sec&ion 16 (%1 G9!" ecause &.ey nulli0y &.e au&.ori&y .ea+s o0 +i00eren& ranc.es o0 governmen& &o augmen& any i&em in &.e General /**ro*ria&ions >a4 0or &.eir res*ec&ive o00ices 0rom savings in o&.er i&ems o0 &.eir res*ec&ive a**ro*ria&ions, as guaran&ee+ y /r&icle 85, Sec&ion 36 (6" o0 &.e )ons&i&u&ion. No&e4or&.y is &.e 0ac& &.a& &.e *o4er &o augmen& 0rom savings lies +orman& un&il au&.orize+ y la4. A.en Sec&ions 66 (%1 G89" an+ 16 (%1 G9!" *ro.i i& &.e res&ora&ion or increase y augmen&a&ion o0 a**ro*ria&ions +isa**rove+ or re+uce+ y )ongress, &.ey im*air &.e cons&i&u&ional an+ s&a&u&ory au&.ori&y o0 &.e 2resi+en& an+ o&.er Eey o00icials &o augmen& any i&em or any a**ro*ria&ion 0rom savings in &.e in&eres& o0 eC*e+iency an+ e00iciency. ;.e eCercise o0 suc. au&.ori&y in res*ec& o0 +isa**rove+ or re+uce+ i&ems y no means ves&s in &.e :Cecu&ive &.e *o4er &o re4ri&e &.e en&ire u+ge&, &.e lee4ay gran&e+ eing +elimi&e+ &o &rans0ers 4i&.in &.e +e*ar&men& or ranc. concerne+, &.e sourcing &o come only 0rom savings. More im*or&an&ly, 0or suc. a s*ecial *o4er as &.a& o0 augmen&a&ion 0rom savings, &.e same is merely incor*ora&e+ in &.e General /**ro*ria&ions -ill. /n /**ro*ria&ions -ill is 7one &.e *rimary an+ s*eci0ic aim o0 4.ic. is &o maEe a**ro*ria&ion o0 money 0rom &.e *u lic &reasury7 (-engzon v. Secre&ary o0 <us&ice, 393 J.S., I1!, 67 S.)&. 363". 5& is a legisla&ive au&.oriza&ion o0 recei*&s an+ eC*en+i&ures. ;.e *o4er o0 augmen&a&ion 0rom savings, on &.e o&.er .an+, can y no means e consi+ere+ a s*eci0ic a**ro*ria&ion o0 money. 5& is a non@a**ro*ria&ion i&em inser&e+ in an a**ro*ria&ion measure. 5ssue #3$: A.e&.er Sec&ion 66 (%1 G89" an+ Sec&ion 16 (%1 G9!" are *rovisions, no& i&ems, in &.e a**ro*ria&ion ill.

,el+ #3$: N'. Sec&ion 66 (%1 G89" an+ Sec&ion 16 (%1 G9!" are no& *rovisions in &.e u+ge&ary sense o0 &.e &erm. /r&icle 85, Sec&ion 36 (3" o0 &.e 1987 )ons&i&u&ion *rovi+es: 7Sec. 36 (3" No *rovision or enac&men& s.all e em race+ in &.e general a**ro*ria&ions ill unless i& rela&es s*eci0ically &o some *ar&icular a**ro*ria&ion &.erein. /ny suc. *rovision or enac&men& s.all e limi&e+ in i&s o*era&ion &o &.e a**ro*ria&ion &o 4.ic. i& rela&es.7 :C*lici& is &.e re=uiremen& &.a& a *rovision in &.e /**ro*ria&ions -ill s.oul+ rela&e s*eci0ically &o some 7 *ar&icular a**ro*ria&ion7 &.erein. ;.e c.allenge+ 7*rovisions7 0all s.or& o0 &.is re=uiremen&. %irs&ly, &.e ve&oe+ 7*rovisions7 +o no& rela&e &o any *ar&icular or +is&inc&ive a**ro*ria&ion. ;.ey a**ly generally &o all i&ems +isa**rove+ or re+uce+ y )ongress in &.e /**ro*ria&ions -ill. Secon+ly, &.e +isa**rove+ or re+uce+ i&ems are no4.ere &o e 0oun+ on &.e 0ace o0 &.e -ill. ;o +iscover &.em, resor& 4ill .ave &o e ma+e &o &.e original recommen+a&ions ma+e y &.e 2resi+en& an+ &o &.e source in+ica&e+ y &.e 7>egisla&ive -u+ge& Researc. an+ Moni&oring '00ice.7 ;.ir+ly, &.e ve&oe+ Sec&ions are more o0 an eC*ression o0 )ongressional *olicy in res*ec& o0 augmen&a&ion 0rom savings ra&.er &.an a u+ge&ary a**ro*ria&ion. )onse=uen&ly, Sec&ion 66 (%1 G89" an+ Sec&ion 16 (%1 G9!" al&.oug. la elle+ as 7*rovisions,7 are ac&ually ina**ro*ria&e *rovisions &.a& s.oul+ e &rea&e+ as i&ems 0or &.e *ur*ose o0 &.e 2resi+en&Gs ve&o *o4er. 5ssue #3$: A.e&.er &.e >egisla&ureKs inclusion o0 =uali0ica&ions, con+i&ions, limi&a&ions or res&ric&ions on eC*en+i&ure o0 0un+s in &.e /**ro*ria&ion -ill 4as *ro*er. ,el+ #3$: ;.ere can e no +enying &.a& in.eren& in &.e *o4er o0 a**ro*ria&ion is &.e *o4er &o s*eci0y .o4 money s.all e s*en&H an+ &.a& in a++i&ion &o +is&inc& 7i&ems7 o0 a**ro*ria&ion, &.e >egisla&ure may inclu+e in /**ro*ria&ion -ills =uali0ica&ions, con+i&ions, limi&a&ions or res&ric&ions on eC*en+i&ure o0 0un+s. Se&&le+ also is &.e rule &.a& &.e :Cecu&ive is no& allo4e+ &o ve&o a con+i&ion or *roviso o0 an a**ro*ria&ion 4.ile allo4ing &.e a**ro*ria&ion i&sel0 &o s&an+. ;.e ve&o o0 a con+i&ion in an /**ro*ria&ions -ill 4.ic. +i+ no& inclu+e a ve&o o0 &.e i&ems &o 4.ic. &.e con+i&ion rela&e+ 4as +eeme+ invali+ an+ 4i&.ou& e00ec& 4.a&soever. ,o4ever, 0or &.e rule &o a**ly, res&ric&ions s.oul+ e suc. in &.e real sense o0 &.e &erm, no& some ma&&ers 4.ic. are more *ro*erly +eal& 4i&. in a se*ara&e legisla&ion. Res&ric&ions or con+i&ions in an /**ro*ria&ions -ill mus& eC.i i& a connec&ion 4i&. money i&ems in a u+ge&ary sense in &.e sc.e+ule o0 eC*en+i&ures. /gain, &.e &es& is a**ro*ria&eness. 75& is no& enoug. &.a& a *rovision e rela&e+ &o &.e ins&i&u&ion or agency &o 4.ic. 0un+s are a**ro*ria&e+. )on+i&ions an+ limi&a&ions *ro*erly inclu+e+ in an a**ro*ria&ion ill mus& eC.i i& suc. a conneCi&y 4i&. money i&ems o0 a**ro*ria&ion &.a& &.ey logically elong in a sc.e+ule o0 eC*en+i&ures . . . &.e ul&ima&e &es& is one o0 a**ro*ria&eness.7 ;es&e+ y &.ese cri&eria, Sec&ion 66 (%1 G89" an+ Sec&ion 16 (%1 G9!" mus& also e .el+ &o e ina**ro*ria&e 7con+i&ions.7 A.ile &.ey, *ar&icularly, Sec&ion 16 (%1 G9!", .ave een 7ar&0ully +ra0&e+7 &o a**ear as &rue con+i&ions or limi&a&ions, &.ey are ac&ually general la4 measures more a**ro*ria&e 0or su s&an&ive an+, &.ere0ore, se*ara&e legisla&ion. %ur&.er, nei&.er o0 &.em s.o4s &.e necessary connec&ion 4i&. a sc.e+ule o0 eC*en+i&ures. ;.e reason is &.a& i&ems re+uce+ or +isa**rove+ y )ongress 4oul+ no& a**ear on &.e 0ace o0 &.e enrolle+ ill or /**ro*ria&ions /c& i&sel0. ;.ey can only e +e&ec&e+ 4.en com*are+ 4i&. &.e original u+ge&ary su mi&&als o0 &.e 2resi+en&. 5n 0ac&, Sec&ions 66 (%1 G89" an+ 16 (%1 G9!" &.emselves *rovi+e &.a& an i&em 7s.all e +eeme+ &o .ave een +isa**rove+ y )ongress i0 no corres*on+ing a**ro*ria&ion 0or &.e s*eci0ic *ur*ose is *rovi+e+ in &.is /c&.7 ,erein, &.ere is no con+i&ion, in &.e u+ge&ary sense o0 &.e &erm, a&&ac.e+ &o an a**ro*ria&ion or i&em in &.e a**ro*ria&ion ill 4.ic. 4as s&rucE ou&. %or o viously, Sec&ions 66 (%1 G89" an+ 16 (%1 G9!" *ar&aEe more o0 a cur&ailmen& on &.e *o4er &o augmen& 0rom savingsH in o&.er 4or+s, 7a general *rovision o0 la4, 4.ic. .a**ens &o e *u& in

an a**ro*ria&ion ill.7 5ssue #I$: A.e&.er &.e legisla&ure .as a reme+y 4.en i& elieves &.a& &.e ve&o *o4ers y &.e eCecu&ive 4ere uncons&i&u&ional. ,el+ #I$: 1:S. 50, in+ee+, &.e legisla&ure elieve+ &.a& &.e eCercise o0 &.e ve&o *o4ers y &.e eCecu&ive 4ere uncons&i&u&ional, &.e reme+y lai+ +o4n y &.e )ons&i&u&ion is crys&al clear. / 2resi+en&ial ve&o may e overri+en y &.e vo&es o0 &4o@&.ir+s o0 mem ers o0 )ongress (1987 )ons&i&u&ion, /r&icle 85, Sec&ion 37#1$, su*ra". -u& )ongress ma+e no a&&em*& &o overri+e &.e 2resi+en&ial ve&o. Gonzales e& al.Gs argumen& &.a& &.e ve&o is ine00ec&ual so &.a& &.ere is 7no&.ing &o overri+e7 .as los& 0orce an+ e00ec& 4i&. &.e eCecu&ive ve&o .aving een .erein u*.el+. ;.ere nee+ e no 0u&ure con0lic& i0 &.e legisla&ive an+ eCecu&ive ranc.es o0 governmen& a+.ere &o &.e s*iri& o0 &.e )ons&i&u&ion, eac. eCercising i&s res*ec&ive *o4ers 4i&. +ue +e0erence &o &.e cons&i&u&ional res*onsi ili&ies an+ 0unc&ions o0 &.e o&.er. ;.ere y, &.e +elica&e e=uili rium o0 governmen&al *o4ers remains on even Eeel.