f:i'f;ih ilipr rL)lic ol llrr PhLlipt)lDcs

DEPAR.TMENT OF'T]HI.O INTERIOR. AND LOCAL GOVERNIVIENT

qx/)t A.Fr ilncisco Cr)ld Coldonrrii rr 11, F]DSA rorller M.rp.lgirahill St., Dili|rrur, QutzoD Citt'
TelL?hollc Ndr:rl)er 925.11.48 .
www.clilg gov.pl)
925.88.88 . 925.03.32

OFFICE OF THE TJI\]]t},IiRSECRE,TARY TOR LOCAL COVERNMENT

DILG Legal Opinion No. 23, S. 2013

HON. DAN]LO O. LEYBLE

City Ntayor 20 JUN 2013
Antipolo, Rizal

Dcar Mayor Leyble,

'l'his pertains to your letter cl: rr,cl 21 I!1ay 2013 recluesting this l)e1:rat tlnent's opiniou
rggardilg ltesolur.ion Nurnbelr; 119 artd 120 of the Satigguniang Par-rlLilawigarl of Rizal
rvhich clcclarecl City Resoluti.)| No. 2013-013 (Annlral Investmc'nt Plan) ancl city
Appr-opriation or:clinauce No. i201ll-001 (AnuuaI Ljudget) as "invaLjd ancl iroperative" on
the solc' grould that only eighr (8) rternbcrs of the Sangguniang Panlungsod tll Antipokr
(iity approved and enacted the : aicl measures last 29 April 2013.

[)cr your letr€r and its atrlchrnents, you filcd a Petition fbr N{aDcla|rus agair.ist the'
lrt,rnbers of the Sangguniang P: nIungsocl o['Aritipolo City beforc the Regional'l'rial Court
(l?'l'C), 13ral]ch 7"1 of Antipolo rliiry, seeking juclicial relie[.fbr tlre contiur-tec] failute a]}d/cir
rt,fusal ol the Sangguniang PanJungsod to enact and approve the 20i3 Ar]nual lnvestmcllt
Plan alcl the Annnal Buclget for 11013 of Ant\rolo City

ln arr Orcler datcd 25 April 2013, the RTC Blantecl the petitioD, ancl dirccted the
Sanggnniarg Parluugsod of A.rrtipolo lo "convene and ltold re.r:lb;l a.r a collegial brttly
exclusiv.tJS. for tht: delibetattDrr ol'the 201-l ,Annual Inveslnietlt Platt and tlte Annuitl
Itutlget litr 201,V ofAnripolo Ci;5 , until tht' sante are respectit'elv approvetl anJ ptssecl. "

Accorcliirgly, in a letter datcd ll5 April 20113, yoll wrote l-[on. Susalra C. Say, Antipoio City
Vice Nllyor alcl Presiding C)ffl:rrr of the Sanggltniang Panlungsod, informing thc' latter ol
rhe aforesaid C)rclcr of the RllC ancl enjoitri.ng t).re sanggunian to cornpJy rvith tirc saute,

ln conpliance with the afbrelrcntioned RTC Olcler alLcl directive fiour your otlice, cight
(8) rren-rbers of the SangguDiang Panlungsod of Antipolo City held a r.'c'gulirr session on 29
April 2913. Despire due norice, ten (10) mernbers ofthe sanggunian u'ere allegedly abscnt
iLr rhe said session, in wlrich Clity ResohLtion No. 201lJ 0] ll ancl City ApPropriation
Ordinance No. 2013-001 s/ere,ltlacted ald approved.

On 07 NIay 201!J, the Siinggur,r:trg Pirnlalawigun of llizal, PursLl.]rt to iLs revi('w Pu\\ r-'r
runcler rhc Local Governnent (locle of i991 (codc), enacted Resolution Nos. 119 ard 120
cleclaring the aforementiolej rneasuLes as invalid aud inoperative for tlaving bcen
cracte(l by the Sangguniang }?allungsoci of Ar.rtipolo City withoLrt the t'ctlitisiLc {luorLlin [s
providtcl under Section 53 oltlri: sane Code-

llence, yonl clueries, which arc ltereto cpotecl, viz:

 1.Is rhc declaration by'ttLe Sangguniang panlalawigan plrrsuunr to trs revrew
power on City Resolur::c,n No. 2013-013 and Appropriation C)rdiluLnce No.
2013-001 as both "inv;rlid and inopcrative" on rhe sole ground that only
eight (8) membersi out of eighreen (lg) members of Sangguniang
Panlungsoci appro'ecl rhe subject resolut.io. and ortlinance, a valic] (sic)
legislative act?

2- Does the Sangguniarrg panlalawigan has (sic) the por,r,er to cleclare

such
ordinance and resoluti,rn as invalid and inoperative other than rhc ground
o[ ulrrr r ires?

l3efore drvellir-rg on yoLrr querics, may we nore that based on

the facts ancl circurnstances y,u
stated in your letter-request, it appears that what are at issue are thc
validity of city
Resolution No. 2013-0r3 and Appropriation ordina.rce No. 20r3 001,
purpo.tedly
by the sa'rgguniang P'nlungsod of Antipoio anci Resolurion Nos. ".ro.t".r
119 anct 120 purportedly
enacted by the Sangguniang panlztlawigan of Rizal.

I-egislative acts enjoy the presLr.:ption of variclity, and iegislative

boclies ar, presuned to
have carried out their functiorr rr:gularly in enacting the said
pursuant to Rtrle 13r,
Section 3 (m) of the Rules of Courr" ''easu'es,

Generally, therefore, the matrer :f the validity of legisiative enaLrnlenrs

,',ay appropriatery
be rhreshed out in the proper ju,ricial proceeding, as only courts
ur"
i)naily detern-rine tl-re vaiidity of :rre herein questioned measures "r''po*".# by lan, to
and their complia'ce with
the provisions of the Constitution, the Code ancl pertinent lalvs.

llc that as it may, we shalr rencle:'an opinion on the issues her.ein raised
soleiy rbr purposes o1,
academic discussion' considerirL'3 that this Department previously
rrad the o"""rror, ,o
LliscoLrrse on t hu sriJ nt(LLre[s.

ln reply to your first qtrery, ir is lur view that the sangguniang panlalar.l,igan
of Rizar erred
in disapProving city Resoluti.* l{o. 2013-013 a'd city Appropriatio' ordina'ce
No. 2013_
001 on the sole grouncl thar sa.d measures were approved by only
eight (g) our of the
eighteen (18) mcmber.s of the iiang;guniang panlungsod of Antipolo Ciry.

Please be advisecl
that this Depar'trnent already had the occasion to elucidate on the exrent
oI
the review polver of the sanggu:riang panlalawigan over a city,s appropriations
ordinance in
DILG Legal Opinion No. 102, S. 200.1 (copy attached).

Quoting Section 327r of the Code,, the afbrementionecl Legal Opinion helcl that rhe exte'r ot,
the revierv power of the srrngguniang panialawigar over a clry s appropriarions

I Secrion 327 Review of ApproprirrioD ordinarces of cornponenr cities and Nlunicipaliries.- The
Sanggunial18 PanlaLawigan shall revir:n' the ordjnance aurhorizing
annual or supplenental u'pr.opriario's of
compoDe:rc cities aud mr.rnicipalities iu rhe same manner and within the."rrt"
p"riod pr"..,.ib.d tb,. tl-," ."ur.*
of other ordinances.

ni-r Il wir.hin rhe saore period, rhe sangguniang panlalawigan shar have uscertai'ed th't rhe
 ordinance L.xtends only as lar as looking rrtto rv[rether ol- not a city's a
1_rpropr.taLrols
,,r(linirllc,' . orrrplies r,r it lt t h,: r,.," rlircn)r,nl\ arcl lirnitations sct fbrth
under'l'irle V, Ilool< Il
of ttrc Local Covernrnent Cocl,:, or the title beirg refen ed to iu rhe afbr.emc.trtionecl
bectrot).

1\pplyirrg the albresaid princilrtr: ro your query, rhe revierv of Ciry

llcsolution Nci. 2013-
013 ancl City Appropriation Or,linalce No. 20111 001 by the
Sangguninrrg |aulalawigln oI
Itizal sbould have been coirlint:cl to the deter:l'niration of said neasurc.s,
c,.lnrpiil.ce; rvirh
the budgeta4' recluireme.rs lai,i dolv'in sectio^s 324 a^d 325 of tr.rc
LGC. viz:

'SECIlON32{. Builgerrrv Requirements. The budget of local

govemrnenr
Lruits tln ;ruy I'isc;rl ye,ar. ;hall comply with the l.bllowitrg
requ ircr.Dents:

a. 'I'he aggregatF anlount appropriatecl

shall not exceed thc estltrrtes ol.
income;

b. Fuli prr-rvisioLr rlLall be nacle for ul statutory atid corltractual

obligations of the locar government unit c.'cerned: provicleci,
however,'l'hat thc lrnrounr of appropriatior.rs for clebt servicing sJ.rlll
nor
exceed twenty pt:i-,:r:nt (20026) of the regular inconrc ol tht
local
SOVerrlment uDrt col r,:terrled;

c. In case ol provinces, cities, and mulicipalities, aicl to conrpolent

barungays slLall be providecl in arnotLnts o1 n.t less trra' one 'l hciLrs:r.d
(P1,000.00) Pesos per barangay, arcl;

d. li'ive pcrccnt (,5!t,) of the estiutated reveure lion Lc,gLrlar souLces

shall be sc-t aside irs iut annual lump appropriation for un{irr"eseen
expenditures arisiinl; from the occurrence of calamitir.s: pr.oviclrcl,
however, T'har sLr(ll apptopriation shall bc usecl oliy in tltr: arr.a,
or a
portion thereof, c,f r re locar gover rllnent unit or oLher art as decraretl
irr
a stlte of calarLrit',r by tbe Presidr:nt.,, (Note: Sec llA g ltj5 lbr
amcndrnenr of par. (C).

"SEC'I iON 325. Gener:al Linitariors. - Tht Lrse of rhe provirreial, ciry,
and
rrunicipal funds shall bt. subject ro the l'ollolvi ng liuritatiotrs:

a) 'fhe total apprrpriatiols, rl4rether annual ol sr-tpplenental, for

pelsonal services of rr local govenrment rurit for one (1) fiscal year
shall
not exceed lbrty fir,c percent (,150/o) il the case of firsr to thircl class
provinces, cities and mr-rnicipalities, and lifiy-fir,e percent (5501,
in tlie
case offourth class or lowet., of thc total aunual income front
r.cgular
sources realized in thc next prececling fiscal year.. The lppropr.iaLions

reclul [erllei]Ls forth in this g1!. dre sa'gguniarg panlaiawiga. shall, u,it] ni'cLy-clay
Period
'qg- presc.ibed
lrerei.above tlecrare such orcli'u.ce inopcrative in its enrirety 'tl.re
or in pa.t. Items
of appropriarions contlary ro rirrrirations prescribed herein shall b.: clisalrorvecr or.
rccrucecL
accorcli ngly. xxx" (uncler-scorirrEi sLrpplied).
 wagt's rcpresenLation aud t [a ltsportat iolt tl]orvlnces of
fbr-- salaries,
ofTicials enpic,v:,ls of the pr-rblic utilities ancl econorrric (ltLcrprises
a r.rcl
o\,"'ned, operated, itircL rnaintailed by the locui governutent rurit
collcern...l shiLll rrot be included iu the annual bu(lgrt or in rhe
coluputatioD of the urrximutrr antoLil]t tbr per:sonal scrvic0s. '] l-rir
appropriatious fitr the personal services of such eutetprise.s shall be
chargecl to theil respcctive budgets;

b) No oflicial or er:nployee shall be eutitled ro a salar.l r.are higlrcr thrn

the maximum lixerl lbl his position or other positions of eclLrivalent
ratrli by applicable l;rvs or rules and regulatiolrs issued thereunder;

c) No local ftlnd shr-ll be appropriatccl ro ilcrease or adjust sllaries t.rL

wages of officials and ernployeres of the national gover rinrenL, cxcepl its
nay be cxpressly authorized by larv;

d) [n cases of abo]ition of positions and the creation .rf' rew ones

resulting from tlre atxrlition of existing positions in rhr: carc.cL sei'vicc,
such abolirion or . r jiition shaLI be made in lccctr.clance with purrirrcnt
provisions of tl.ris ccule and the civil service law, nrlc,s alrl regulations;

e) Positiots in th: ollicial plaltilla fbr cil_reer posilior.rs ,,r'lrich ale

occupiecl by incrrmbents holding permanent appoinrmcnts shall lre
covel{.d l)} rJerlrr.rt. :,1)prLrpri:lliols;

I) No ch.rnges irr dcsignation or uomenclatuLe ol positlors resLLlring i;r

a prorrotion or dencrtion in ralk or ircrease in compensrtion sltlll be
r.rllowecl, except \yhrrll rhe posirion is acti.Lally vacmt, irncl the lilling o{'
such positious shall be strictly made iu accordance rvitlr the civil servjcc
larv, mles and rcgul: I ions;

g) '[.l-re creatiou ol ucrv positions and salary incLeases or acljustnelLs

shall il ncl case l.,r: macle retroactive; and

h) The ar.rnual lipp.-.ipriatiors for cliscret.ionary purpos(,s of thc local

chief executive shall n<tt exceed two perccnr (2yo) o{, the acturl rcceipts
derived frorn basic leal propelty tax in the nexr preceding c.alenclar
year. Discretiona4r [1p4t r1roll be disblrsecl ouly for public
purposes to be s11,1:rorted by appropriare vouchers alcl subject to such
guiclelincs as nray lrc prescribecl by ]aw. No afiount sh;rll be
appr.opriated lul the same purpose except as authorized under this
Section. "

corning now to )'our secol)rl qL ery, asi.hr from Lhe fact that rhe saDggunilllg panLaLau,ig.rrr
is bould to lilrit its review of ilre appropriatiolrs ordinance lo thc requirclnenls set forth
by the afbre mentioned provisions of the code, Section 56 (c) thereof is clcar il pr:oviding
Ibr the olly glouncl upon whir:h a city or:djuance or rc.solution uiay bi: de,claretl ini,aljd by
ttre sangguniang panlalawigun i.e., the ordilauce is beyond the porver collt,rr.cd upon
tbe sungguniun concelned,
In relatio' thereto, the case of Moday vs. CA (G.R. No. 107916, February 20, 1997) is
instructive. In the said case, the Suprene Courr, citing Velazco vs. BIas (G.R. No. L_
30456, fuly 30, 1982) ruled that:
"The only ground uptn which a provincial boarcl rnay declare lny
municipal resolution, or ciinance, or order invalid is when such l.esolution,
ordiuance or order is 'teyond the power conferred upon the council or
president making the same.' Absolutely uo other grould is recogr-rized by
the lalv. A strictl1. [t:3al qlrestion is before the provincial board in its
consideration ofa muni:ipal resolution, ordinance or order. The provincial
(board's) disapuroval tf any resolution. or be
premised specificall). rl pe&lhc rhat such resolution, ordinance. or
-fue!
orqer ls oLlrslLte rne sclpe oI the legal powers coniilrred by_bw. If a
provincial board passes these limits, it usur.ps the legislative functious of
the municipal council, r,r-president. Such has been the consisrenr course of
execurive aurhority." (timphasis supplied)

It is to be noted that the reason given by the sanggtLniang p^'larawiga. of Rizal in

disapproving the A,nual Invesr:ment PIan a'd Appropriations ordinance o{Antipoto city
is the alleged enactment ofthe measures in question by only eight (g) ofthe eighteen (1g)
r'ernbe's of the Sangguliang 1?adungsod of A'tipolo city, in a regular session claimed to
have been conducted without the requisite quorum.

To our rnind, the reason 6i'en is supported by the pror.isions of the Local
Government code and jurisprudence 'ot as cited above since the review a*thority of the
sangguliang panlalawigan doerr not encotrpass questions on quorum.

The'efore, we are of rhe op,inion that the Sa'gguniang panlalarvigan of Rizal has
exceeded its review mandate vis-d-vis your city's Annual Investment plan and Annual
Budget for the calendar year 2()13.

We hope to have enlightenecl 1,ou on the matter.

VeLy tmly yours,

AUSTERE A. PANADERO
Undersecretary

LS:03