LAW ON PUBLIC CORPORATIONS – TAMPICO, E.L.

Tampico, Eldene L.
Law on Public Corporations
Atty. Karlo Krisanto B. Inocencio

Asynchronous Activity #1
Answer the following questions from the syllabus:

1. What is the nature of MMDA? (MMDA v. Bel-Air Village Association, Inc., G.R. No.
135962, March 27, 2000)
2. What are the requirements for the division and merger of LGU? (LGC, Sec. 8)
3. When is an LGU deemed abolished? (LGC, Sec. 9)
4. Who has the absolute power to alter and dissolve a municipal corporation? (LGC, Sec. 6)
5. How may the alteration or dissolution of a municipal corporation be made? (LGC, Sec. 6)
6. Under the law, how may an LGU, public places, streets, and structures be named? (LGC,
Sec. 13)
7. What are the limitations in naming LGU, public places, streets, and structures? (LGC, Sec.
13)
8. What are the sources of power of municipal corporations?
9. How may the provisions of the Local Government Code be interpreted? (LGC, Sec. 5)
10. Can LGUs exercise police power? (LGC, Sec. 16; Binay v. Domingo, G.R. No. 92389,
September 11, 1991)
11. What is the General Welfare Clause? (LGC, Sec. 16)
12. What are the distinctions between General Legislative Power and Police Power?
(Mosqueda v. Pilipino Banana Growers and Exporters Association, Inc., G.R. No. 189185,
August 16, 2016)
13. What are the limitations on LGUs’ delegated legislative power?
a. Express Grant by law (MMDA v. Bel-Air Village Association, Inc., supra)
b. Must not be contrary to law (Lina v. Dizon-Paño G.R. No. 129093, August 30, 2001)
c. Territoriality (People v. Gozo, G.R. No. L-36409, October 26, 1973)
d. Equal protection clause (People v. Gabriel, G.R. No. 18838, July 25, 1922)
e. Due process clause (City of Manila v. Laguio, Jr., G.R. No. 118127, April 12, 2005)
14. What are the tests to determine the validity of police power measures? (NTC v. Philippine
Veterans Bank, G.R. Nos. 84132-33, December 10, 1990; Mosqueda v. Pilipino Banana
Growers and Exporters Association, Inc., supra; Social Justice Society v. Atienza, G.R. No.
156052, February 3, 2008; City of Bacolod v. Phuture Visions Co., Inc., G.R. No. 190289,
January 17, 2018; Mayor Cayabyab v. Dimson, G.R. No. 223862, July 10, 2017)

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15. What is the obligation of LGU with respect provisions of basic services and facilities? (LGC,
Sec. 17)

ANSWERS:

1. MMDA has an administrative nature. In the case of MMDA vs. Bel-Air Village Association,
Inc., the Supreme Court held that MMDA is not a local government unit or a public
corporation endowed with legislative power. It is not even a "special metropolitan
political subdivision" as contemplated in Section 11, Article X of the Constitution. The
creation of a "special metropolitan political subdivision" requires the approval by a
majority of the votes cast in a plebiscite in the political units directly affected." R. A. No.
7924 was not submitted to the inhabitants of Metro Manila in a plebiscite. The Chairman
of the MMDA is not an official elected by the people, but appointed by the President with
the rank and privileges of a cabinet member. In fact, part of his function is to perform
such other duties as may be assigned to him by the President, 57 whereas in local
government units, the President merely exercises supervisory authority. This emphasizes
the administrative character of the MMDA.

2. The requirements for division and merger as laid down in Section 8 of the Local
Government Code are the following:
a. Income - It must be sufficient, based on acceptable standards, to provide for all
essential government facilities and services and special functions commensurate
with the size of its population, as expected of the local government unit
concerned;
b. Population - It shall be determined as the total number of inhabitants within the
territorial jurisdiction of the local government unit concerned; and
c. Land Area - It must be contiguous, unless it comprises two or more islands or is
separated by a local government unit independent of the others; properly
identified by metes and bounds with technical descriptions; and sufficient to
provide for such basic services and facilities to meet the requirements of its
populace. Compliance with the foregoing indicators shall be attested to by the
DOF, the NSO, and the LBM of the DENR.
▪ Provided however, that such division shall not reduce the income,
population, or land area of the local government unit or units concerned
to less than the minimum requirements prescribed in the LGC
• Provided, further, That the income classification of the original
local government unit or units shall not fall below its current
income classification prior to such division.

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3. An LGU is deemed abolished, according to Section 9 of the Local Government Code, when
its income, population, or land area has been irreversibly reduced to less than the
minimum standards prescribed for its creation under Book III of this Code, as certified by
the national to Congress or to the Sanggunian concerned, as the case may be. The law or
ordinance abolishing a local government unit shall specify the province, city, municipality,
or Barangay with which the local government unit sought to be abolished will be
incorporated or merged.

4. According to Section 6 of the Local Government Code, a municipal corporation may be

altered or dissolved by the Congress in case of a province, city, or municipality; or by the
Sangguniang Panlalawigan or Sangguniang Panlungsod in case of a barangay.

5. Section 6 of the Local Government Code provides that a local government unit may be
created, divided, merged, abolished, or its boundaries substantially altered either by law
enacted by Congress in the case of a province, city, municipality, or any other political
subdivision, or by ordinance passed by the Sangguniang Panlalawigan or Sangguniang
Panlungsod.

6. According to Section 13 of the Local Government Code, the following are the manners of
naming local government units and public places, streets, and structures
a. The Sangguniang Panlalawigan may, in consultation with the Philippine Historical
Commission, change the name of the following within its territorial jurisdiction:
1) Component cities and municipalities, upon the recommendation of the
Sanggunian concerned
2) Provincial roads, avenues, boulevards, thorough-fares, and bridges
3) Public vocational or technical schools and other postsecondary and
tertiary schools
4) Provincial hospitals, health centers, and other health facilities
5) Any other public place or building owned by the provincial government
b. The Sanggunian of highly urbanized cities and of component cities whose charters
prohibit their voters from voting for provincial elective officials, hereinafter
referred to in this Code as independent component cities, may, in consultation
with the Philippine Historical Commission, change the name of the following
within its territorial jurisdiction:
1) City Barangays, upon the recommendation of the Sangguniang Barangay
concerned
2) City roads, avenues, boulevards, thorough fares, and bridges

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3) Public elementary, secondary and vocational or technical schools,

community colleges and non-chartered colleges
4) City hospitals, health centers and other health facilities
5) Any other public place or building owned by the city government
c. The Sanggunians of component cities and municipalities may, in consultation with
the Philippine Historical Commission, change the name of the following within its
territorial jurisdiction:
1) City and municipal Barangays, upon recommendation of the
Sangguniang Barangay concerned
2) City, municipal and Barangay roads, avenues, boulevards, thorough
fares, and bridges
3) City and municipal public elementary, secondary and vocational or
technical schools, post-secondary and other tertiary schools
4) City and municipal hospitals, health centers and other health facilities
5) Any other public place or building owned by the municipal government

7. The limitations in naming local government units and public places, streets, and
structures, as provided in Section 13 of the Local Government Code, are the following:
a. None of the foregoing local government units, institutions, places, or buildings
shall be named after a living person, nor may a change of name be made unless
for a justifiable reason and, in any case, not oftener than once every 10 years. The
name of a local government unit or a public place, street or structure with
historical, cultural, or ethnic significance shall not be changed, unless by a
unanimous vote of the Sanggunian concerned and in consultation with the PHC
b. A change of name of a public school shall be made only upon the recommendation
of the local school board concerned
c. A change of name of public hospitals, health centers, and other health facilities
shall be made only upon the recommendation of the local health board concerned
d. The change of name of any local government unit shall be effective only upon
ratification in a plebiscite conducted for the purpose in the political unit directly
affected. In any change of name, the Office of the President, the representative of
the legislative district concerned, and the Bureau of Posts shall be notified

8. The sources of powers of a municipal corporation are the Constitution, laws, and charters.

9. According to Section 5 of the Local Government Code, the provisions of such Code shall
be interpreted based on the following rules:

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a. Any provision on a power of a local government unit shall be liberally interpreted in

its favor, and in case of doubt, any question thereon shall be resolved in favor of
devolution of powers and of the lower local government unit. Any fair and reasonable
doubt as to the existence of the power shall be interpreted in favor of the local
government unit concerned.
b. In case of doubt, any tax ordinance or revenue measure shall be construed strictly
against the local government unit enacting it, and liberally in favor of the taxpayer.
Any tax exemption, incentive or relief granted by any local government unit pursuant
to the provisions of this Code shall be construed strictly against the person claiming
it.
c. The general welfare provisions in this Code shall be liberally interpreted to give more
powers to local government units in accelerating economic development and
upgrading the quality of life for the people in the community.
d. Rights and obligations existing on the date of effectivity of this Code and arising out
of contracts or any other source of prestation involving a local government unit shall
be governed by the original terms and conditions of said contracts or the law in force
at the time such rights were vested.
e. In the resolution of controversies arising under this Code where no legal provision or
jurisprudence applies, resort may be had to the customs and traditions in the place
where the controversies take place.

10. Yes, local government units can exercise police power. As a general rule laid down in the
case of Binay vs. Domingo, municipal corporations may exercise police powers within the
fair intent and purpose of their creation which are reasonably proper to give effect to the
powers expressly granted. Municipal governments exercise this power under the general
welfare clause: pursuant thereto they are clothed with authority to "enact such
ordinances and issue such regulations as may be necessary to carry out and discharge the
responsibilities conferred upon it by law, and such as shall be necessary and proper to
provide for the health, safety, comfort and convenience, maintain peace and order,
improve public morals, promote the prosperity and general welfare of the municipality
and the inhabitants thereof, and insure the protection of property therein."

However, before a municipal corporation may exercise such power, there must be a valid
delegation of such power by the legislature which is the repository of the inherent powers
of the State. A valid delegation of police power may arise from express delegation, or be
inferred from the mere fact of the creation of the municipal corporation.

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11. The general welfare clause as provided in Section 16 of the Local Government Code states
that every local government unit shall exercise the powers expressly granted, those
necessarily implied there from, as well as powers necessary, appropriate, or incidental for
its efficient and effective governance, and those which are essential to the promotion of
the general welfare.

12. In the case of Mosqueda vs. Pilipino Banana Growers and Exporters Association, Inc.,
general legislative power is defined as the power delegated by Congress to the local
legislative body, or the Sangguniang Panlungsod to enable the local legislative body to
enact ordinances and make regulations. This power is limited in that the enacted
ordinances must not be repugnant to law, and the power must be exercised to effectuate
and discharge the powers and duties legally conferred to the local legislative body.

The police power proper, on the other hand, authorizes the local government unit to
enact ordinances necessary and proper for the health and safety, prosperity, morals,
peace, good order, comfort, and convenience of the local government unit and its
constituents, and for the protection of their property.

13. The limitations on LGU’s delegated legislative powers are the following:
a. As to the express grant, it is provided in the case of MMDA vs. Bel-Air Village
Association, Inc., that every local government unit shall exercise the powers
expressly granted, those necessarily implied therefrom, as well as powers
necessary, appropriate, or incidental for its efficient and effective governance, and
those which are essential to the promotion of the general welfare.
b. The delegated legislative power must not be contrary to law. In the case of Lina
vs. Paño, the Supreme Court held that the basic relationship between the national
legislature and the local government units has not been enfeebled by the new
provisions in the Constitution strengthening the policy of local autonomy. Without
meaning to detract from that policy, we here confirm that Congress retains control
of the local government units although in significantly reduced degree now than
under our previous Constitutions.
c. In the case of People of the Philippines vs. Gozo, the Supreme Court held that
within the limits of its territory, whatever statutory powers are vested upon it may
be validly exercised. Any residual authority and therein conferred, whether
expressly or impliedly, belongs to the national government, not to an alien
country.
d. In the case of People of the Philippines vs. Gabriel, the Supreme Court held that
ordinances shall have no discrimination and should apply to all kinds and classes

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of people alike doing business within the prohibited area, and no person within
the city limits has any legal or constitutional right to auction his goods without a
license from, or the consent of, the city, and it must follow that, so long as the
ordinance is uniform, the city has a legal right to specify how, when, where, and in
what manner goods may be sold at auction within its limits, and to prohibit their
sale in any other manner.
e. In the case of City of Manila vs. Laguio, Jr., the Supreme Court reiterated that the
police power granted to local government units must always be exercised with
utmost observance of the rights of the people to due process and equal protection
of the law. Such power cannot be exercised whimsically, arbitrarily or despotically
as its exercise is subject to a qualification, limitation or restriction demanded by
the respect and regard due to the prescription of the fundamental law, particularly
those forming part of the Bill of Rights.

14. The test to determine the validity of police power is laid down in the case of National
Development Company and New Agrix, Inc. vs. Philippine Veterans Bank, that is,
legislative act based on the police power requires the concurrence of a lawful subject and
a lawful method. In more familiar words,
a. the interests of the public generally, as distinguished from those of a particular
class, should justify the interference of the state; and
b. the means employed are reasonably necessary for the accomplishment of the
purpose and not unduly oppressive upon individuals.

15. According to Section 17 of the Local Government Code, the following are the obligations
of LGUs with respect to basic services and facilities:
a. Local government units shall endeavor to be self-reliant and shall continue exercising
the powers and discharging the duties and functions currently vested upon them.
They shall also discharge the functions and responsibilities of national agencies and
offices devolved to them pursuant to this Code. Local government units shall likewise
exercise such other powers and discharge such other functions and responsibilities as
are necessary, appropriate, or incidental to efficient and effective provision of the
basic services and facilities enumerated herein.
b. Such basic services and facilities include, but are not limited to, the following:
1) For a Barangay:
i. Agricultural support services which include planting materials
distribution system and operation of farm produce collection and
buying stations

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ii. Health and social welfare services which include maintenance of

Barangay health center and day-care center
iii. Services and facilities related to general hygiene and sanitation,
beautification, and solid waste collection
iv. Maintenance of Katarungang Pambarangay
v. Maintenance of Barangay roads and bridges and water supply systems
vi. Infrastructure facilities such as multi- purpose hall, multipurpose
pavement, plaza, sports center, and other similar facilities
vii. Information and reading center
viii. Satellite or public market, where viable
2) For a municipality:
i. Extension and on-site research services and facilities related to
agriculture and fishery activities which include dispersal of livestock
and poultry, fingerlings, and other seeding materials for aquaculture;
palay, corn, and vegetable seed farms; medicinal plant gardens; fruit
tree, coconut, and other kinds of seedling nurseries; demonstration
farms; quality control of copra and improvement and development of
local distribution channels, preferably through cooperatives; inter-
Barangay irrigation system; water and soil resource utilization and
conservation projects; and enforcement of fishery laws in municipal
waters including the conservation of mangroves
ii. Pursuant to national policies and subject to supervision, control and
review of the DENR, implementation of community-based forestry
projects which include integrated social forestry programs and similar
projects; management and control of communal forests with an area
not exceeding 50 square kilometers; establishment of tree parks,
greenbelts, and similar forest development projects
iii. Hhealth services which include the implementation of programs and
projects on primary health care, maternal and child care, and
communicable and non-communicable disease control services; access
to secondary and tertiary health services; purchase of medicines,
medical supplies, and equipment needed to carry out the services
herein enumerated
iv. Social welfare services which include programs and projects on child
and youth welfare, family and community welfare, women's welfare,
welfare of the elderly and disabled persons; community-based
rehabilitation programs for vagrants, beggars, street children,
scavengers, juvenile delinquents, and victims of drug abuse; livelihood

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and other pro-poor projects; nutrition services; and family planning

services
v. Information services which include investments and job placement
information systems, tax and marketing information systems, and
maintenance of a public library
vi. Solid waste disposal system or environmental management system
and services or facilities related to general hygiene and sanitation
vii. Municipal buildings, cultural centers, public parks including freedom
parks, playgrounds, and sports facilities and equipment, and other
similar facilities
viii. Infrastructure facilities intended primarily to service the needs of the
residents of the municipality and which are funded out of municipal
funds including, but not limited to, municipal roads and bridges; school
buildings and other facilities for public elementary and secondary
schools; clinics, health centers and other health facilities necessary to
carry out health services; communal irrigation, small water
impounding projects and other similar projects; fish ports; artesian
wells, spring development, rainwater collectors and water supply
systems; seawalls, dikes, drainage and sewerage, and flood control;
traffic signals and road signs; and similar facilities
ix. Public markets, slaughterhouses and other municipal enterprises
x. Public cemetery
xi. Tourism facilities and other tourist attractions, including the
acquisition of equipment, regulation and supervision of business
concessions, and security services for such facilities; and
xii. Sites for police and fire stations and substations and the municipal jail
3) For a Province:
i. Agricultural extension and on-site research services and facilities which
include the prevention and control of plant and animal pests and
diseases; dairy farms, livestock markets, animal breeding stations, and
artificial insemination centers; and assistance in the organization of
farmers' and fishermen's cooperatives and other collective
organizations, as well as the transfer of appropriate technology
ii. Industrial research and development services, as well as the transfer of
appropriate technology
iii. Pursuant to national policies and subject to supervision, control and
review of the DENR, enforcement of forestry laws limited to
community based forestry projects, pollution control law, small scale

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mining law, and other laws on the protection of the environment; and
mini hydro-electric projects for local purposes
iv. Subject to the provisions of Title Five, Book I of this Code, health
services which include hospitals and other tertiary health services;
v. Social welfare services which include programs and projects on rebel
returnees and evacuees; relief operations; and, population
development services
vi. Provincial buildings, provincial jails, freedom parks and other public
assembly areas, and other similar facilities
vii. Infrastructure facilities intended to service the needs of the residents
of the province and which are funded out of provincial funds including,
but not limited to, provincial roads and bridges; inter-municipal
waterworks, drainage and sewerage, flood control, and irrigation
systems; reclamation projects; and similar facilities
viii. Programs and projects for low-cost housing and other mass dwellings,
except those funded by the Social Security System (SSS), Government
Service Insurance System (GSIS), and the Home Development Mutual
Fund (HDMF): Provided, that national funds for these programs and
projects shall be equitably allocated among the regions in proportion
to the ratio of the homeless to the population
ix. Investment support services, including access to credit financing
x. Upgrading and modernization of tax information and collection
services through the use of computer hardware and software and
other means
xi. Inter-municipal telecommunications services, subject to national
policy guidelines
xii. Tourism development and promotion programs
4) For a City:
All the services and facilities of the municipality and province, and in addition
thereto, the following:
i. Adequate communication and transportation facilities
ii. Support for education, police and fire services and facilities

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