FIRST DIVISION SOCIAL JUSTICE SOCIETY (SJS), VLADIMIR ALARIQUE T. CABIGAO and BONIFACIO S. TUMBOKON, Pe ! !"ne#$, G.R. No.

156052

Present: PUNO, C.J., Chairperson, SANDOVAL-GUTIERREZ, ORONA, AZ UNA !n" LEONARDO-DE ASTRO, JJ.

%&e#$'$%

(ON. JOSE L. ATIEN)A, JR., !n *!$ +a,a+! - a$ Ma-"# ". *e C! - ". Man!/a, Re$,"nden . 0%%%%%%%%%%%%%%%%%%%%%%0 C(EVRON P(ILIPPINES INC., PETRON CORPORATION and PILIPINAS S(ELL PETROLEUM CORPORATION, M"&an $%In e#&en"#$. 0%%%%%%%%%%%%%%%%%%%%%%0 DEPARTMENT OF ENERGY, M"&an %In e#&en"#.

Pro#$%&!te": 'e(r$!r) 1*, 200+

0% % % % % % % % % % % % % % % % % % % % % % % % % % % % % % % % % % % % % % % % %0

RESOLUTION CORONA, J.1 A,ter -e .ro#$%&!te" o$r "e/0s0on 0n t10s /!se on 2!r/1 3, 2003, or.or!t0on 1e4ron P10%0..0nes In/. 5 1e4ron6, Petron !n" P0%0.0n!s S1e%% Petro%e$#

5Petron6

or.or!t0on 5S1e%%6 5/o%%e/t04e%), t1e o0% /o#.!n0es6 !n" t1e Re.$(%0/ o, t1e P10%0..0nes, re.resente" () t1e De.!rt#ent o, Ener&) 5DOE6, ,0%e" t1e0r res.e/t04e #ot0ons ,or %e!4e to 0nter4ene !n" ,or re/ons0"er!t0on o, t1e "e/0s0on. 1e4ron1 0s en&!&e" 0n t1e ($s0ness o, 0#.ort0n&, "0str0($t0n& !n" #!r7et0n& o, .etro%e$# .ro"$/ts 0n t1e P10%0..0nes -10%e S1e%% !n" Petron !re en&!&e" 0n t1e ($s0ness o, #!n$,!/t$r0n&, re,0n0n& !n" %07e-0se 0#.ort0n&, "0str0($t0n& !n" #!r7et0n& o, .etro%e$# .ro"$/ts 0n t1e P10%0..0nes.2 T1e DOE 0s ! &o4ern#ent!% !&en/) /re!te"

$n"er Re.$(%0/ A/t 5RA6 No. 36*+ * !n" t!s7e" to .re.!re, 0nte&r!te, /oor"0n!te, s$.er40se !n" /ontro% !%% .%!ns, .ro&r!#s, .ro8e/ts !n" !/t040t0es o, t1e &o4ern#ent re%!t04e

1 2 3

Formerly known as Caltex (Philippines), Inc. Rollo, p. 192. Entitle !"n "ct Creatin# the $epartment o% Ener#y, &ationali'in# the (r#ani'ation an F)nctions o% *o+ernment "#encies &elate to Ener#y, an %or (ther P)rposes, also known as the !$(E "ct o% 1992, an appro+e on $ecem-er 9, 1992. Prior to &" ./30, a $epartment o% Ener#y was esta-lishe )n er Presi ential $ecree 1o. 122/, !Creatin# the $epartment o% Ener#y,, appro+e on (cto-er /, 19...

to ener&) e9.%or!t0on, "e4e%o.#ent, $t0%0:!t0on, "0str0($t0on !n" /onser4!t0on.; T1e ,!/ts !re rest!te" (r0e,%) !s ,o%%o-s: Pet0t0oners So/0!% <$st0/e So/0et), V%!"0#0r A%!r0=$e T. !(0&!o !n" >on0,!/0o S. T$#(o7on, 0n !n or0&0n!% .et0t0on ,or mandamus $n"er R$%e 65 o, t1e R$%es o, o$rt, so$&1t to

/o#.e% res.on"ent ?on. <ose L. At0en:!, <r., t1en #!)or o, t1e 0t) o, 2!n0%!, to en,or/e Or"0n!n/e No. +023. T10s

or"0n!n/e -!s en!/te" () t1e Sangguniang Panlungsod o, 2!n0%! on No4e#(er 20, 2001,3 !..ro4e" () res.on"ent 2!)or on No4e#(er 2+, 2001,/ !n" (e/!#e e,,e/t04e on Se/t0ons 1 !n" *

De/e#(er 2+, 2001 !,ter .$(%0/!t0on. . t1ereo, st!te:

SECTION 1. For the purpose of promoting sound urban planning and ensuring health, public safety, and general elfare of the residents of !andacan and Sta. "na as ell as its ad#oining areas, the land use of $those% portions of land bounded by the !asig &i'er in the north, !N& &ailroad Trac( in the east, )eata St. in the south, !alumpong St. in the south est, and Estero de !andacan in the est$,% !N& &ailroad in the north est area, Estero de !andacan in the $n%ortheast, !asig &i'er in the southeast and *r. +.,. Carreon in the south est. The area of !unta, Sta. "na bounded by the !asig &i'er, +arcelino Obrero St., +ayo -. St., and F. +analo
4 3

/ .

&" ./30, 5ection 4. Entitle !(r inance &eclassi%yin# the 6an 7se o% 89hose: Portions o% 6an ;o)n e -y the Pasi# &i+er In 9he 1orth8,: P1& &ailroa 9rack in the East, ;eata 5t. in the 5o)th, Pal)mpon# 5t. in the 5o)thwest an Estero $e Pan acan in the <est, P1& &ailroa in the 1orthwest "rea, Estero o% Pan acan in the 1ortheast, Pasi# &i+er in the 5o)theast an $r. =. 6. Carreon in the 5o)thwest> the "rea o% P)nta, 5ta. "na ;o)n e -y the Pasi# &i+er, =arcelino (-rero 5t.8,: =ayo 20 5t. an the F. =analo 5treet %rom In )strial II to Commercial I., Rollo, p. 12. I ., p. /.

Street, are hereby reclassified from Industrial II to Commercial I. /// /// ///

SEC. 0. O ners or operators of industries and other businesses, the operation of hich are no longer permitted under Section 1 hereof, are hereby gi'en a period of si/ 123 months from the date of effecti'ity of this Ordinance ithin hich to cease and desist from the operation of businesses hich are hereby in conse4uence, disallo ed.

Or"0n!n/e No. +023 re/%!ss0,0e" t1e !re! "es/r0(e" t1ere0n ,ro# 0n"$str0!% to /o##er/0!% !n" "0re/te" t1e o-ners !n" o.er!tors o, ($s0nesses "0s!%%o-e" $n"er t1e re/%!ss0,0/!t0on to /e!se !n" "es0st ,ro# o.er!t0n& t1e0r ($s0nesses -0t10n s09 #ont1s ,ro# t1e "!te o, e,,e/t040t) o, t1e or"0n!n/e. A#on& t1e ($s0nesses s0t$!te" 0n t1e !re! !re t1e so-/!%%e" @P!n"!/!n Ter#0n!%sA o, t1e o0% /o#.!n0es. On <$ne 26, 2002, t1e 0t) o, 2!n0%! !n" t1e

De.!rt#ent o, Ener&) 5DOE6 entere" 0nto ! #e#or!n"$# o, $n"erst!n"0n& 52OU6+ -0t1 t1e o0% /o#.!n0es. T1e) !&ree" t1!t @t1e s/!%0n& "o-n o, t1e P!n"!/!n Ter#0n!%s B-!sC t1e #ost 40!(%e !n" .r!/t0/!(%e o.t0on.A T1e Sangguniang Panlungsod r!t0,0e" t1e 2OU 0n Reso%$t0on No. D3. D In t1e
0

I ., pp. 1/?10. 9his =(7 mo i%ie the =emoran )m o% "#reement (=(") exec)te on (cto-er 12, 2221 -y the oil companies an the $(E. 9his =(" calle %or close coor ination amon# the parties with a +iew o% %orm)latin# appropriate meas)res to arri+e at the -est possi-le option to ens)re, maintain an at the same time harmoni'e the interests o% -oth #o+ernment an the oil companies> i ., pp. 413?413. Entitle !&esol)tion &ati%yin# the =emoran )m o% 7n erstan in# (=(7) Entere into -y an amon# the $epartment o% Ener#y, the City o% =anila, Caltex (Philippines), Inc., Petron Corporation an Pilipinas 5hell Petrole)m Corporation on 2/ @)ne 2222, an Anown as $oc)ment 1o. /2, Pa#e 1o. 12, ;ook 1o. 1, 5eries o% 2222 in the 1otarial &e#istry o% "tty. 1eil 6anson 5alce o, 1otary P)-lic %or an in the City o% =anila>, i ., p. 3/.

s!#e reso%$t0on, t1e Sanggunian "e/%!re" t1!t t1e 2OU -!s e,,e/t04e on%) ,or ! .er0o" o, s09 #ont1s st!rt0n& <$%) 25, 2002.10 T1ere!,ter, on <!n$!r) *0, 200*, t1e Sanggunian

!"o.te" Reso%$t0on No. 1*11 e9ten"0n& t1e 4!%0"0t) o, Reso%$t0on No. D3 to A.r0% *0, 200* !n" !$t1or0:0n& t1e #!)or o, 2!n0%! to 0ss$e s.e/0!% ($s0ness .er#0ts to t1e o0% /o#.!n0es.12 T10s -!s t1e ,!/t$!% (!/7"ro. .resente" to t1e o$rt

-10/1 (e/!#e t1e (!s0s o, o$r 2!r/1 3, 2003 "e/0s0on. Ee r$%e" t1!t res.on"ent 1!" t1e #0n0ster0!% "$t) $n"er t1e Lo/!% Go4ern#ent o"e 5LG 6 to @en,or/e !%% %!-s !n" t1e &o4ern!n/e o, t1e /0t),A 1*

or"0n!n/es re%!t04e to

0n/%$"0n& Or"0n!n/e No. +023. Ee !%so 1e%" t1!t -e nee" not reso%4e t1e 0ss$e o, -1et1er t1e 2OU entere" 0nto () res.on"ent -0t1 t1e o0% /o#.!n0es !n" t1e s$(se=$ent reso%$t0ons .!sse" () t1e Sanggunian /o$%" !#en" or re.e!% Or"0n!n/e No. +023 s0n/e t1e reso%$t0ons -10/1 r!t0,0e" t1e 2OU !n" #!"e 0t (0n"0n& on t1e 0t) o, 2!n0%! e9.ress%)

&!4e 0t ,$%% ,or/e !n" e,,e/t on%) $nt0% A.r0% *0, 200*. Ee
12

11

12 13

I . Entitle !&esol)tion Exten in# the Bali ity o% &esol)tion 9., 5eries o% 2222, to "pril 32, 2223, 9here-y ")thori'in# his Conor =ayor @ose 6. "tien'a, @r., to Iss)e 5pecial ;)siness Permits to Caltex Phil., Inc., Petron Corporation an Pilipinas 5hell Petrole)m Corporation 5it)ate within the Pan acan (il 9erminal Co+erin# the sai Perio >, i ., p. 30. I . 5ection 433 (-) (2).

/on/%$"e" t1!t t1ere -!s not10n& t1!t %e&!%%) 10n"ere" res.on"ent ,ro# en,or/0n& Or"0n!n/e No. +023. A,ter -e ren"ere" o$r "e/0s0on on 2!r/1 3, 2003, t1e o0% /o#.!n0es !n" DOE so$&1t to 0nter4ene !n" ,0%e" #ot0ons ,or re/ons0"er!t0on 0n 0nter4ent0on on 2!r/1 12, 2003 !n" 2!r/1 21, 2003 res.e/t04e%). On A.r0% 11, 2003, -e /on"$/te" t1e or!% !r&$#ents 0n >!&$0o .et0t0oners, res.on"ent !n" 0t) to 1e!r o0%

#o4!nts-0nter4enors

/o#.!n0es !n" DOE. T1e o0% /o#.!n0es /!%%e" o$r !ttent0on to t1e ,!/t t1!t on A.r0% 25, 200*, res.on"ent !n" t1e 1e4ron 1!" ,0%e" ! /o#.%!0nt !&!0nst 0t) o, 2!n0%! 0n t1e Re&0on!% Tr0!% o$rt

5RT 6 o, 2!n0%!, >r!n/1 *D, ,or t1e !nn$%#ent o, Or"0n!n/e No. +023 -0t1 !..%0/!t0on ,or -r0ts o, .re%0#0n!r) .ro10(0tor) 0n8$n/t0on !n" .re%0#0n!r) #!n"!tor) 0n8$n/t0on. 14 T1e /!se -!s "o/7ete" !s /040% /!se no. 0*-106*33. On t1e s!#e "!), S1e%% ,0%e" ! .et0t0on ,or .ro10(0t0on !n" mandamus %07e-0se !ss!0%0n& t1e 4!%0"0t) o, Or"0n!n/e No. +023 !n" -0t1 !..%0/!t0on ,or -r0ts o, .re%0#0n!r) .ro10(0tor) 0n8$n/t0on !n" .re%0#0n!r) #!n"!tor) 0n8$n/t0on.13
14 13

T10s -!s "o/7ete" !s

Rollo, p. 202. I ., p. 333.

/040% /!se no. 0*-106*+0. /onso%0"!te" !n" t1e RT

L!ter on, t1ese t-o /!ses -ere o, 2!n0%!, >r!n/1 *D 0ss$e" !n

or"er "!te" 2!) 1D, 200* &r!nt0n& t1e !..%0/!t0ons ,or -r0ts o, .re%0#0n!r) .ro10(0tor) 0n8$n/t0on !n" .re%0#0n!r)

#!n"!tor) 0n8$n/t0on:
56E&EFO&E, upon the filing of a total bond of T5O +I,,ION 1!hp -,777,777.773 !ESOS, let a 5rit of !reliminary !rohibitory In#unction be issued ordering $respondent% and the City of +anila, their officers, agents, representati'es, successors, and any other persons assisting or acting in their behalf, during the pendency of the case, to &EF&"IN from ta(ing steps to enforce Ordinance No. .7-8, and let a 5rit of !reliminary +andatory In#unction be issued ordering $respondent% to issue $Che'ron and Shell% the necessary )usiness !ermits to operate at the !andacan Terminal.1/

Petron %07e-0se ,0%e" 0ts o-n .et0t0on 0n t1e RT

o,

2!n0%!, >r!n/1 ;2, !%so !tt!/70n& t1e 4!%0"0t) o, Or"0n!n/e No. +023 -0t1 .r!)er ,or t1e 0ss$!n/e o, ! -r0t o, .re%0#0n!r) 0n8$n/t0on !n"For te#.or!r) restr!0n0n& or"er 5TRO6. T10s

-!s "o/7ete" !s /040% /!se no. 0*-106*3D. In !n or"er "!te" A$&$st ;, 200;, t1e RT st!t$s =$o.1. en8o0ne" t1e .!rt0es to #!0nt!0n t1e

T1ere!,ter, 0n 2006, t1e /0t) /o$n/0% o, 2!n0%! en!/te" Or"0n!n/e No. +11D, !%so 7no-n !s t1e 2!n0%!

o#.re1ens04e L!n" Use P%!n !n" Zon0n& Or"0n!n/e o,

1/ 1.

Penne -y @) #e &eynal o *. &os, i ., p. 300. Penne -y @) #e *)illermo *. P)r#anan, i ., p. 423.

2006.1+ T10s -!s !..ro4e" () res.on"ent on <$ne 16, 2006. 1D A&&r0e4e" !ne-, t1e RT 1e4ron !n" S1e%% ,0%e" ! /o#.%!0nt 0n

o, 2!n0%!, >r!n/1 20, !s70n& ,or t1e n$%%0,0/!t0on o,

Or"0n!n/e No. +11D.20 T10s -!s "o/7ete" !s /040% /!se no. 06-115**;. Petron ,0%e" 0ts o-n /o#.%!0nt on t1e s!#e o, 2!n0%!, >r!n/1 ;1. 21 T10s -!s

/!$ses o, !/t0on 0n t1e RT

"o/7ete" !s /040% /!se no. 03-116300. 22 T1e /o$rt 0ss$e" ! TRO 0n ,!4or o, Petron, en8o0n0n& t1e 0t) o, 2!n0%! !n"

res.on"ent ,ro# en,or/0n& Or"0n!n/e No. +11D. 2* 2e!n-10%e, 0n /040% /!se no. 0*-106*3D, t1e .!rt0es ,0%e" ! 8o0nt #ot0on to -0t1"r!- /o#.%!0nt !n" /o$nter/%!0# on 'e(r$!r) 20, 2003.2; In !n or"er "!te" A.r0% 2*, 2003, t1e 8o0nt #ot0on -!s &r!nte" !n" !%% t1e /%!0#s !n"

/o$nter/%!0#s o, t1e .!rt0es -ere -0t1"r!-n. 25 G04en t1ese !""0t0on!% .0e/es o, 0n,or#!t0on, t1e ,o%%o-0n& -ere s$(#0tte" !s 0ss$es ,or o$r reso%$t0on: 1. -1et1er #o4!nts-0nter4enors s1o$%" (e !%%o-e" to
10 19 22 21

22 23 24 23

I ., p. 430. I ., p. 493. I ., p. 493. Petron trie to inter+ene in ci+il case no. 2/?113334 -)t the co)rt enie its motion> i ., pp. /92?/94. =emoran )m o% oil companies, p. 23. Rollo, p. 230. I ., p. /90. Footnote no. 32 o% memoran )m o% oil companies, i ., p. 2/.

0nter4ene 0n t10s /!seG2/ 2. -1et1er t1e ,o%%o-0n& !re 0#.e"0#ents to t1e e9e/$t0on o, o$r 2!r/1 3, 2003 "e/0s0on: 5!6 Or"0n!n/e No. +11D, t1e en!/t#ent !n" e90sten/e o, -10/1 -ere not .re40o$s%) (ro$&1t () t1e .!rt0es to t1e !ttent0on o, t1e 5(6 -r0ts o$rt !n" o, .re%0#0n!r) .ro10(0tor)

0n8$n/t0on !n" .re%0#0n!r) #!n"!tor) 0n8$n/t0on !n" st!t$s =$o or"er 0ss$e" () t1e RT ;2 !n" *. -1et1er t1e 0#.%e#ent!t0on o, Or"0n!n/e No. +023 -0%% $n"$%) en/ro!/1 $.on t1e DOEHs .o-ers !n" ,$n/t0ons 0n4o%40n& ener&) reso$r/es. D$r0n& t1e or!% !r&$#ents, t1e .!rt0es s$(#0tte" to t10s o$rtHs .o-er to r$%e on t1e /onst0t$t0on!%0t) !n" 4!%0"0t) o, Or"0n!n/e No. +023 "es.0te t1e .en"en/) o, /onso%0"!te" /!ses 0n4o%40n& t10s 0ss$e 0n t1e RT . 23 T1e 0#.ort!n/e o, sett%0n& t10s /ontro4ers) !s ,$%%) !n" !s e9.e"0t0o$s%) !s
2/

o, 2!n0%!, >r!n/1es *D !n"

2.

"ccor in# to the oil companies, they were in%orme that their an the $(EDs motions to inter+ene ha alrea y -een #rante (=emoran )m o% oil companies, p. 20). Cowe+er, this contention is not s)pporte -y the recor s. 9ranscript o% "pril 11, 222. (ral "r#)ments, pp. 123, 192?193.

.oss0(%e -!s e#.1!s0:e", /ons0"er0n& 0ts 0#.!/t on .$(%0/ 0nterest. T1$s, -e -0%% !%so "0s.ose o, t10s 0ss$e 1ere. T1e .!rt0es -ere !,ter !%% &04en !#.%e o..ort$n0t) to .resent !n" !r&$e t1e0r res.e/t04e .os0t0ons. >) so "o0n&, -e -0%% "o

!-!) -0t1 t1e "e%!)s /on/o#0t!nt -0t1 %0t0&!t0on !n" /o#.%ete%) !"8$"0/!te !n 0ss$e -10/1 -0%% #ost %07e%) re!/1 $s !n)-!) !s t1e ,0n!% !r(0ter o, !%% %e&!% "0s.$tes. >e,ore -e reso%4e t1ese 0ss$es, ! (r0e, re40e- o, t1e 10stor) o, t1e P!n"!/!n Ter#0n!%s 0s /!%%e" ,or to .$t o$r "0s/$ss0on 0n t1e .ro.er /onte9t.

(ISTORY OF T(E PANDACAN OIL TERMINALS

P!n"!/!n 5one o, t1e "0str0/ts o, t1e

0t) o, 2!n0%!6 0s

s0t$!te" !%on& t1e (!n7s o, t1e P!s0& r04er. At t1e t$rn o, t1e t-ent0et1 /ent$r), P!n"!/!n -!s $no,,0/0!%%) "es0&n!te" !s t1e 0n"$str0!% /enter o, 2!n0%!. T1e !re!, t1en %!r&e%) $n0n1!(0te", -!s 0"e!% ,or 4!r0o$s e#er&0n& 0n"$str0es !s t1e ne!r() r04er ,!/0%0t!te" t1e tr!ns.ort!t0on o, &oo"s !n" .ro"$/ts. In t1e 1D20s, 0t -!s /%!ss0,0e" !s !n 0n"$str0!% :one.2+
20

A#on& 0ts e!r%) 0n"$str0!% sett%ers -ere t1e o0%

*. ;. ;a#aya)a, Pandacan's Ring of Fire, 1E<5;&E"A 3(4)E 12 (=arch 3, 2223).

/o#.!n0es. S1e%% est!(%0s1e" 0ts 0nst!%%!t0on t1ere on <!n$!r) *0, 1D1;.2D !%te9 5no1e4ron6 ,o%%o-e" s$0t 0n 1D13 -1en

t1e /o#.!n) (e&!n #!r7et0n& 0ts .ro"$/ts 0n t1e /o$ntr). *0 In 1D22, 0t ($0%t ! -!re1o$se "e.ot -10/1 -!s %!ter /on4erte" 0nto ! 7e) "0str0($t0on ter#0n!%. *1 T1e /or.or!te .resen/e 0n t1e P10%0..0nes o, Esso 5PetronHs .re"e/essor6 (e/!#e #ore 7een%) ,e%t -1en 0t -on ! /on/ess0on to ($0%" !n" o.er!te ! re,0ner) 0n >!t!!n 0n 1D53. *2 It t1en -ent on to o.er!te ! st!te-o,-t1e-!rt %$(e o0% (%en"0n& .%!nt 0n t1e P!n"!/!n Ter#0n!%s -1ere 0t #!n$,!/t$res %$(es !n" &re!ses.**

On De/e#(er +, 1D;1, t1e Se/on" Eor%" E!r re!/1e" t1e s1ores o, t1e P10%0..0ne Is%!n"s. A%t1o$&1 2!n0%! -!s

"e/%!re" !n o.en /0t), t1e A#er0/!ns 1!" no 0nterest 0n -e%/o#0n& t1e <!.!nese. In ,!/t, 0n t1e0r :e!%o$s !tte#.t to ,en" o,, t1e <!.!nese I#.er0!% Ar#), t1e Un0te" St!tes Ar#) too7 /ontro% o, t1e P!n"!/!n Ter#0n!%s !n" 1!st0%) #!"e .%!ns to "estro) t1e stor!&e ,!/0%0t0es to "e.r04e t1e
29

32

31
32

33

Pandacan Installation Profile, FhttpEGGwww.shell.comGhomeG%rameworkHsiteI Iph? enJFC2IGph?enGthmlGiw#enGa-o)tKshellGL (+isite =arch 11, 222.). History: More than 85 years of Philippine Partnership, FhttpEGGwww.caltex.comGphGenGphKhistory. aspL (+isite =arch 11, 222.). Rollo, p. 322. FhttpEGGwww.%)n in#)ni+erse.comGcompany?historiesGPetron?Corporation?Company? Cistory.htmlL (+isite =ay 13, 222.). FhttpEGGwww.petron.comGa-o)t?lea in#.aspL (+isite =ay 13, 222.).

!"4!n/0n& <!.!nese Ar#) o, ! 4!%$!(%e %o&0st0/s -e!.on. 34 T1e U.S. Ar#) ($rne" $n$se" .etro%e$#, /!$s0n& !

,r0&1ten0n& /on,%!&r!t0on. ?0stor0!n N0/7 <o!=$0n re/o$nte" t1e e4ents !s ,o%%o-s:

"fter the 9S"FFE e'acuated the City late in *ecember 1:;1, all army fuel storage dumps ere set on fire. The flames spread, en'eloping the City in smo(e, setting e'en the ri'ers abla<e, endangering bridges and all ri'erside buildings. = For one ee( longer, the >open city? bla<ed@a cloud of smo(e by day, a pillar of fire by night.33

T1e ,0re /onse=$ent%) "estro)e" t1e P!n"!/!n Ter#0n!%s !n" ren"ere" 0ts net-or7 o, "e.ots !n" ser40/e st!t0ons

0no.er!t04e.*6 A,ter t1e -!r, t1e o0% "e.ots -ere re/onstr$/te". P!n"!/!n /1!n&e" !s 2!n0%! re($0%t 0tse%,. T1e t1ree #!8or o0% /o#.!n0es res$#e" t1e o.er!t0on o, t1e0r "e.ots. 3. >$t t1e "0str0/t -!s no %on&er ! s.!rse%) .o.$%!te" 0n"$str0!% :oneG 0t 1!" e4o%4e" 0nto ! ($st%0n&, 1o"&e.o"&e /o##$n0t). To"!), P!n"!/!n 1!s (e/o#e ! "ense%) .o.$%!te" !re! 0n1!(0te" () !(o$t +;,000 .eo.%e, #!8or0t) o, -1o# !re $r(!n .oor -1o /!%% 0t 1o#e. 30
34 33 3/ 3.

As0"e ,ro# n$#ero$s

30

United States v. alte!" Phils." et. al., 344 7.5. 149 (1932). 1. @("M7I1, "6="1"C F(& ="1I6EN(5 9. (19.9). S#pra note 32. Pandacan oil depots: $ disaster %aiting to happen FhttpEGGwww.%oe.co.)kGreso)rceGreportsG-ehin Kshine.p %L (+isite =ay 13, 222.). I .

0n"$str0!% 0nst!%%!t0ons, t1ere !re !%so s#!%% ($s0nesses, /1$r/1es, rest!$r!nts, s/1oo%s, "!)/!re /enters !n"

res0"en/es s0t$!te" t1ere.39 2!%!/!I!n& P!%!/e, t1e o,,0/0!% res0"en/e o, t1e Pres0"ent o, t1e P10%0..0nes !n" t1e se!t o, &o4ern#ent!% .o-er, 0s 8$st t-o 70%o#eters !-!). 42 T1ere 0s ! .r04!te s/1oo% ne!r t1e Petron "e.ot. A%on& t1e -!%%s o, t1e S1e%% ,!/0%0t) !re s1!nt0es o, 0n,or#!% sett%ers. 41 2ore t1!n 15,000 st$"ents !re enro%%e" 0n e%e#ent!r) !n" 10&1 s/1oo%s s0t$!te" ne!r t1ese ,!/0%0t0es.42 A $n04ers0t) -0t1 ! st$"ent .o.$%!t0on o, !(o$t 25,000 0s %o/!te" "0re/t%) !/ross t1e "e.ot on t1e (!n7s o, t1e P!s0& r04er.43 T1e *6-1e/t!re P!n"!/!n Ter#0n!%s 1o$se t1e o0% /o#.!n0esH "0str0($t0on ter#0n!%s !n" "e.ot ,!/0%0t0es. 44 T1e re,0ner0es o, 1e4ron !n" S1e%% 0n T!(!n&!o !n" >!$!n, (ot1

0n >!t!n&!s, res.e/t04e%), !re /onne/te" to t1e P!n"!/!n Ter#0n!%s t1ro$&1 ! 11;-70%o#eter43 $n"er&ro$n" .0.e%0ne s)ste#.4/ PetronHs re,0ner) 0n L0#!), >!t!!n, on t1e ot1er

1!n", !%so ser40/es t1e "e.ot.4. T1e ter#0n!%s store ,$e% !n"
39

42 41 42 43 44 43 4/ 4.

Safety and health ris&s in the Philippines FhttpEGGwww.%oe.co.)kGreso)rceGreportsG%ailin#Kchallen#e.p %L (+isite =ay 13, 222.). S#pra note 3.. S#pra note 20. S#pra note 3.. I . Rollo, p. 221. S#pra note 20 at 13. S#pra note 44. I ., p. 223.

ot1er .etro%e$# .ro"$/ts !n" s$..%) D5J o, t1e ,$e% re=$0re#ents o, 2etro 2!n0%!,40 50J o, L$:onHs /ons$#.t0on !n" *5J n!t0on-0"e.49 '$e% /!n !%so (e tr!ns.orte" t1ro$&1 (!r&es !%on& t1e P!s0& r04er or t!n7 tr$/7s 40! t1e So$t1 L$:on E9.ress-!). Ee no- "0s/$ss t1e ,0rst 0ss$e: -1et1er #o4!nts0nter4enors s1o$%" (e !%%o-e" to 0nter4ene 0n t10s /!se.

INTERVENTION OF T(E OIL COMPANIES AND T(E DOE S(OULD BE ALLO2ED IN T(E INTEREST OF JUSTICE

Inter4ent0on 0s ! re#e") () -10/1 ! t10r" .!rt), not or0&0n!%%) 0#.%e!"e" 0n t1e .ro/ee"0n&s, (e/o#es ! %0t0&!nt t1ere0n to en!(%e 10#, 1er or 0t to .rote/t or .reser4e ! r0&1t or 0nterest -10/1 #!) (e !,,e/te" () s$/1 .ro/ee"0n&s. 32 T1e .ert0nent r$%es !re Se/t0ons 1 !n" 2, R$%e 1D o, t1e R$%es o, o$rt:
SEC. 1. 5ho may inter'ene. @ " person ho has a legal interest in the matter in litigation, or in the success of either of the parties, or an interest against both, or is so situated as to be ad'ersely affected by a distribution or other disposition of property in the custody of the court or of an officer thereof may, ith lea'e of
40 49 32

I ., p. 222. I ., p. .31. Hi'(one Mar&eting orporation v. )ai&al Realty orporation , *.&. 1o. 149992, 22 ")#)st 2224, 43. 5C&" 121, 139, citin# Manalo v. o#rt of $ppeals, *.&. 1o. 14129., 0 (cto-er 2221, 3// 5C&" .32, .// (2221), which in t)rn cite First Philippine Holdings orporation v. Sandigan*ayan, 233 5C&" 32 (199/).

court, be allo ed to inter'ene in the action. The court shall consider hether or not the inter'ention ill unduly delay or pre#udice the ad#udication of the rights of the original parties, and hether or not the inter'enorAs rights may be fully protected in a separate proceeding. SEC. -. Time to inter'ene. @ The motion to inter'ene may be filed at any time before rendition of #udgment by the trial court. " copy of the pleadingBinBinter'ention shall be attached to the motion and ser'ed on the original parties.

T1$s, t1e ,o%%o-0n& !re t1e re=$0s0tes ,or 0nter4ent0on o, ! non-.!rt):

113 ,egal interest 1a3 1b3 I 1d3 in the matter in contro'ersyC or in the success of either of the partiesC or against both partiesC or person is so situated as to be ad'ersely affected by a distribution or other disposition of property in the custody of the court or of an officer thereofC or pre#udice the

1-3 103

Inter'ention ill not unduly delay ad#udication of rights of original partiesC

Inter'enorAs rights may not be fully protected in a separate proceeding31 and rendition of #udgment by the trial court.

(g) The motion to inter'ene may be filed at any time before

'or

(ot1

t1e

o0%

/o#.!n0es

!n"

DOE,

t1e

%!st

re=$0re#ent 0s "e,0n0te%) !(sent. As ! r$%e, 0nter4ent0on 0s !%%o-e" @(e,ore ren"0t0on o, 8$"&#entA !s Se/t0on 2, R$%e 1D e9.ress%) .ro40"es. >ot1 ,0%e" t1e0r se.!r!te #ot0ons !,ter o$r "e/0s0on -!s .ro#$%&!te". In Republic of the Philippines v. Gingoyon,52 ! re/ent%) "e/0"e" /!se -10/1 -!s !%so !n
31

32

See +rtega v. o#rt of $ppeals, 339 Phil. 12/, 139 (1990), citin# the 199. R#les of ivil Proced#re -y Feria, pp. .1?.2. *.&. 1o. 1//429, 1 Fe-r)ary 222/, 401 5C&" 43..

or0&0n!% !/t0on ,0%e" 0n t10s

o$rt, -e "e/%!re" t1!t t1e

!..ro.r0!te t0#e to ,0%e t1e #ot0ons-0n-0nter4ent0on -!s (e,ore !n" not !,ter reso%$t0on o, t1e /!se. 5* T1e o$rt, 1o-e4er, 1!s re/o&n0:e" e9/e.t0ons to

Se/t0on 2, R$%e 1D 0n t1e 0nterest o, s$(st!nt0!% 8$st0/e:

The rule on inter'ention, li(e all other rules of procedure, is intended to ma(e the po ers of the Court fully and completely a'ailable for #ustice. It is aimed to facilitate a comprehensi'e ad#udication of ri'al claims o'erriding technicalities on the timeliness of the filing thereof.34

T1e o0% /o#.!n0es !ssert t1!t t1e) 1!4e ! %e&!% 0nterest 0n t10s /!se (e/!$se t1e 0#.%e#ent!t0on o,

Or"0n!n/e No. +023 -0%% "0re/t%) !,,e/t t1e0r ($s0ness !n" .ro.ert) r0&1ts.55
$T%he interest hich entitles a person to inter'ene in a suit bet een other parties must be in the matter in litigation and of such direct and immediate character that the inter'enor ill either gain or lose by direct legal operation and effect of the #udgment. Other ise, if persons not parties to the action ere allo ed to inter'ene, proceedings ould become unnecessarily complicated, e/pensi'e and interminable. "nd this ould be against the policy of the la . The ords >an interest in the sub#ect? means a direct interest in the cause of action as pleaded, one that ould put the inter'enor in a legal position to litigate a fact alleged in the complaint ithout the establishment of hich plaintiff could not reco'er. D2

33

34

33 3/

I ., p. 4.2. Pinlac v. o#rt of $ppeals, 43. Phil. 32., 334 (2223), citin# ,irector of -ands v. o#rt of $ppeals, *.&. 1o. 6?431/0, 23 5eptem-er 19.9, 93 5C&" 230, 24/. Rollo, p. 223. $lfelor v. Halasan, *.&. 1o. 1/390., 31 =arch 222/, 40/ 5C&" 431, 4/1, citin# .ordic $sia -td. v. o#rt of $ppeals, 431 Phil. 402, 492?493 (2223).

Ee !&ree t1!t t1e o0% /o#.!n0es 1!4e ! "0re/t !n" 0##e"0!te 0nterest 0n t1e 0#.%e#ent!t0on o, Or"0n!n/e No. +023. T1e0r /%!0# 0s t1!t t1e) -0%% nee" to s.en" (0%%0ons o, .esos 0, t1e) !re /o#.e%%e" to re%o/!te t1e0r o0% "e.ots o$t o, 2!n0%!. ons0"er0n& t1!t t1e) !"#0tte" 7no-0n& !(o$t t10s

/!se ,ro# t1e t0#e o, 0ts ,0%0n& on De/e#(er ;, 2002, t1e) s1o$%" 1!4e 0nter4ene" %on& (e,ore o$r 2!r/1 3, 2003 "e/0s0on to .rote/t t1e0r 0nterests. >$t t1e) "0" not. 3. Ne0t1er "0" t1e) o,,er !n) -ort1) e9.%!n!t0on to 8$st0,) t1e0r %!te 0nter4ent0on. >e t1!t !s 0t #!), !%t1o$&1 t1e0r #ot0on ,or 0nter4ent0on -!s not ,0%e" on t0#e, -e -0%% !%%o- 0t (e/!$se t1e) r!0se" !n" .resente" no4e% 0ss$es !n" !r&$#ents t1!t -ere not /ons0"ere" () t1e o$rt 0n 0ts 2!r/1 3, 2003 "e/0s0on. A,ter

!%%, t1e !%%o-!n/e or "0s!%%o-!n/e o, ! #ot0on to 0nter4ene 0s !""resse" to t1e so$n" "0s/ret0on o, t1e /o$rt (e,ore -10/1 t1e /!se 0s .en"0n&.30 ons0"er0n& t1e /o#.e%%0n& re!sons

,!4or0n& 0nter4ent0on, -e "o not t10n7 t1!t t10s -0%% $n"$%) "e%!) or .re8$"0/e t1e !"8$"0/!t0on o, r0&1ts o, t1e or0&0n!%
3.

30

9o O)sti%y their late inter+ention, the oil companies explaine that 8they: were aware o% this Petition -e%ore the Conora-le Co)rt -)t they opte not to inter+ene then -eca)se they -elie+e that it was more proper to irectly attack the +ali ity o% (r inance 1o. 022. (=emoran )m, p. 22). 9hey also sai that they i not eem it necessary to inter+ene then -eca)se they relie in #oo %aith that respon ent 8=ayor: wo)l , as a conscientio)s liti#ant, interpose a %ittin# e%ense o% the instant Petition. (Footnote no. 2, i ., p. 3) Hi'(one Mar&eting orporation v. )ai&al Realty orporation, s#pra note 32 at 142.

.!rt0es. In ,!/t, 0t -0%% (e e9.e"0te" s0n/e t1e0r 0nter4ent0on -0%% en!(%e $s to r$%e on t1e /onst0t$t0on!%0t) o, Or"0n!n/e No. +023 0nste!" o, -!0t0n& ,or t1e RT Hs "e/0s0on.

T1e DOE, on t1e ot1er 1!n", !%%e&es t1!t 0ts 0nterest 0n t10s /!se 0s !%so "0re/t !n" 0##e"0!te !s Or"0n!n/e No. +023 en/ro!/1es $.on 0ts e9/%$s04e !n" n!t0on!% !$t1or0t) o4er #!tters !,,e/t0n& t1e o0% 0n"$str). It see7s to 0nter4ene 0n or"er to re.resent t1e 0nterests o, t1e #e#(ers o, t1e .$(%0/ -1o st!n" to s$,,er 0, t1e P!n"!/!n Ter#0n!%sH o.er!t0ons !re "0s/ont0n$e". Ee -0%% t!/7%e t1e 0ss$e o, t1e !%%e&e" en/ro!/1#ent 0nto DOEHs "o#!0n %!ter on. S$,,0/e 0t to s!) !t t10s .o0nt t1!t, ,or t1e .$r.ose o, 1e!r0n& !%% s0"es !n" /ons0"er0n& t1e tr!ns/en"ent!% 0#.ort!n/e o, t10s /!se, -e -0%% !%so !%%o- DOEHs 0nter4ent0on.

T(E INJUNCTIVE 2RITS ARE NOT IMPEDIMENTS TO T(E ENFORCEMENT OF ORDINANCE NO. 3456

Un"er R$%e 65, Se/t0on *5D o, t1e R$%es o,

39

o$rt, !

9he %)ll text rea sE 5EC. 3. Petition for Manda/#s. P <hen any tri-)nal, corporation, -oar , o%%icer or person )nlaw%)lly ne#lects the per%ormance o% an act which the law speci%ically enOoins as a )ty res)ltin# %rom an o%%ice, tr)st, or station, or )nlaw%)lly excl) es another %rom the )se an enOoyment o% a ri#ht or o%%ice to which s)ch other is entitle , an there is no other plain, spee y

.et0t0on ,or mandamus #!) (e ,0%e" -1en !n) tr0($n!%, /or.or!t0on, (o!r", o,,0/er or .erson $n%!-,$%%) ne&%e/ts t1e .er,or#!n/e o, !n !/t -10/1 t1e %!- s.e/0,0/!%%) en8o0ns !s ! "$t) res$%t0n& ,ro# !n o,,0/e, tr$st or st!t0on. A//or"0n& to t1e o0% /o#.!n0es, res.on"ent "0" not $n%!-,$%%) ,!0% or ne&%e/t to en,or/e Or"0n!n/e No. +023 (e/!$se 1e -!s %!-,$%%) .re4ente" ,ro# "o0n& so () 40rt$e o, t1e 0n8$n/t04e -r0ts !n" st!t$s =$o or"er 0ss$e" () t1e RT >r!n/1es *D !n" ;2. '0rst, -e note t1!t -10%e 1e4ron !n" S1e%% st0%% 1!4e 0n o, 2!n0%!,

t1e0r ,!4or t1e -r0ts o, .re%0#0n!r) 0n8$n/t0on !n" .re%0#0n!r) #!n"!tor) 0n8$n/t0on, t1e st!t$s =$o or"er 0n ,!4or o, Petron 0s no %on&er 0n e,,e/t s0n/e t1e /o$rt &r!nte" t1e 8o0nt #ot0on o, t1e .!rt0es to -0t1"r!- t1e /o#.%!0nt !n" /o$nter/%!0#. 60 Se/on", t1e or0&0n!% .!rt0es ,!0%e" to 0n,or# t1e o$rt

!(o$t t1ese 0n8$n/t04e -r0ts. Res.on"ent 5-1o -!s !%so 0#.%e!"e" !s ! .!rt) 0n t1e RT /!ses6 "e,en"s 10#se%, ()

s!)0n& t1!t 1e 0n,or#e" t1e /o$rt o, t1e .en"en/) o, t1e /040% /!ses !n" t1!t ! TRO -!s 0ss$e" () t1e RT 0n t1e

/2

an a eQ)ate reme y in the or inary co)rse o% law, the person a##rie+e there-y may %ile a +eri%ie petition in the proper co)rt, alle#in# the %acts with certainty an prayin# that O) #ment -e ren ere comman in# the respon ent, imme iately or at some other time to -e speci%ie -y the co)rt, to o the act reQ)ire to -e one to protect the ri#hts o% the petitioner, an to pay the ama#es s)staine -y the petitioner -y reason o% the wron#%)l acts o% the respon ent. xxx S#pra note 23.

/onso%0"!te" /!ses ,0%e" ()

1e4ron !n" S1e%%. It 0s tr$e t1!t

1!" t1e o0% /o#.!n0es on%) 0nter4ene" #$/1 e!r%0er, t1e o$rt -o$%" not 1!4e (een %e,t 0n t1e "!r7 !(o$t t1ese ,!/ts. Ne4ert1e%ess, res.on"ent s1o$%" 1!4e $."!te" t1e -!) o, #!n0,est!t0on, on s$/1 ! re%e4!nt #!tter. In 10s #e#or!n"$#, res.on"ent #ent0one" t1e o$rt, ()

0ss$!n/e o, ! TRO. Un"er Se/t0on 5 o, R$%e 5+ o, t1e R$%es o, o$rt, ! TRO 0ss$e" () t1e RT 0s e,,e/t04e on%) ,or ! .er0o"

o, 20 "!)s. T10s 0s -1), 0n o$r 2!r/1 3, 2003 "e/0s0on, -e .res$#e" -0t1 /ert!0nt) t1!t t10s 1!" !%re!") %!.se". 61 Res.on"ent !%so #ent0one" t1e &r!nt o, 0n8$n/t04e -r0ts 0n 10s re8o0n"er -10/1 t1e o$rt, 1o-e4er, e9.$n&e" ,or (e0n& !

.ro10(0te" .%e!"0n&. T1e .!rt0es !n" t1e0r /o$nse%s -ere /%e!r%) re#0ss 0n t1e0r "$t0es to t10s o$rt.

In reso%40n& /ontro4ers0es, /o$rts /!n on%) /ons0"er ,!/ts !n" 0ss$es .%e!"e" () t1e .!rt0es. 62 o$rts, !s -e%% !s

#!&0str!tes .res0"0n& o4er t1e# !re not o#n0s/0ent. T1e) /!n on%) !/t on t1e ,!/ts !n" 0ss$es .resente" (e,ore t1e# 0n !..ro.r0!te .%e!"0n&s. T1e) #!) not e4en s$(st0t$te t1e0r o-n .erson!% 7no-%e"&e ,or e40"en/e. Nor #!) t1e) t!7e
/1 /2

Footnote no. 24, p. 9 o% the ecision. -ogronio v. (aleseo, 3.2 Phil. 92., 912 (1999).

not0/e o, #!tters e9/e.t t1ose e9.ress%) .ro40"e" !s s$(8e/ts o, #!n"!tor) 8$"0/0!% not0/e. Ee no- .ro/ee" to t1e 0ss$e o, -1et1er t1e 0n8$n/t04e -r0ts !re %e&!% 0#.e"0#ents to t1e en,or/e#ent o, Or"0n!n/e No. +023. Se/t0on *, R$%e 5+ o, t1e R$%es o, o$rt en$#er!tes t1e

&ro$n"s ,or t1e 0ss$!n/e o, ! -r0t o, .re%0#0n!r) 0n8$n/t0on:

SEC. 0. Erounds for issuance of preliminary in#unction. F " preliminary in#unction may be granted hen it is establishedG 1a3 That the applicant is entitled to the relief demanded, and the hole or part of such relief consists in restraining the commission or continuance of the act or acts complained of, or in re4uiring the performance of an act or acts, either for a limited period or perpetuallyC That the commission, continuance or nonperformance of the act or acts complained of during the litigation ould probably or( in#ustice to the applicantC or

1b3

(g) IThat a party, court, agency or a person is doing,

threatening, or is attempting to do, or is procuring or suffering to be done, some act or acts probably in 'iolation of the rights of the applicant respecting the sub#ect of the action or proceeding, and tending to render the #udgment ineffectual.

T1ere

!re

t-o

re=$0s0tes

,or

t1e

0ss$!n/e

o,

.re%0#0n!r) 0n8$n/t0on: 516 t1e r0&1t to (e .rote/te" e90sts prima facie !n" 526 t1e !/ts so$&1t to (e en8o0ne" !re 40o%!t04e o, t1!t r0&1t. It #$st (e .ro4en t1!t t1e 40o%!t0on so$&1t to (e .re4ente" -0%% /!$se !n 0rre.!r!(%e 0n8$st0/e.

T1e

!/t

so$&1t

to

(e

restr!0ne"

1ere

-!s

t1e

en,or/e#ent o, Or"0n!n/e No. +023. It 0s ! sett%e" r$%e t1!t !n or"0n!n/e en8o)s t1e .res$#.t0on o, 4!%0"0t) !n", !s s$/1, /!nnot (e restr!0ne" () 0n8$n/t0on. /3 Ne4ert1e%ess, -1en t1e 4!%0"0t) o, t1e or"0n!n/e 0s !ss!0%e", t1e /o$rts !re not .re/%$"e" ,ro# 0ss$0n& !n 0n8$n/t04e -r0t !&!0nst 0ts en,or/e#ent. ?o-e4er, -e 1!4e "e/%!re" t1!t t1e 0ss$!n/e o, s!0" -r0t 0s .ro.er on%) -1en:
... the petitioner assailing the ordinance has made out a case of unconstitutionality strong enough to overcome, in the mind of the judge, the presumption of validity , in addition to a sho ing of a clear legal right to the remedy sought.... /4 1Emphasis supplied3

<$"&e Re)n!%"o G. Ros, 0n 10s or"er "!te" 2!) 1D, 200*, st!te" 10s (!s0s ,or 0ss$0n& t1e 0n8$n/t04e -r0ts:
The Court, in resol'ing hether or not a 5rit of !reliminary In#unction or !reliminary +andatory In#unction should be issued, is guided by the follo ing re4uirementsG 113 a clear legal right of the complainantC 1-3 a 'iolation of that rightC and 103 a permanent and urgent necessity for the 5rit to pre'ent serious damage. The Court belie'es that these re4uisites are present in these cases. There is no doubt that the plaintiffHpetitioners ha'e been legitimately operating their business in the !andacan Terminal for many years and they ha'e made substantial capital in'estment therein. E'ery year they ere issued )usiness !ermits by the City of +anila. Its operations ha'e not been declared illegal or contrary to la or morals. In fact, because of its 'ital importance to the national economy, it as included in the In'estment !riorities !lan
/3 /4

0era v. Hon. 1#dge $rca, 130 Phil. 3/9, 304 (19/9). Filipino Metals orporation v. Secretary of ,epart/ent of (rade and Ind#stry , *.&. 1o. 13.490, 13 @)ly 2223, 4/3 5C&" /1/, /24 citin# 0alley (rading o." Inc. v. FI of Isa*ela" )r. II , *.&. 1o. 49329, 31 =arch 1909, 1.1 5C&" 321, 320, in t)rn citin# (a*larin v. 2#tierre3, *.&. 1o. 6? .0124, 31 @)ly 190., 32 5C&" .31, .3..

as mandated under the >*o nstream Oil Industry *eregulation "ct of 1:.. 1&.". .;8:3. "s a la ful business, the plaintiffHpetitioners ha'e a right, therefore, to continue their operation in the !andacan Terminal and the right to protect their in'estments. This is a clear and unmista(able right of the plaintiffHpetitioners. The enactment, therefore, of City Ordinance No. .7-8 passed by the City Council of +anila reclassifying the area here the !andacan Terminal is located from Industrial II to Commercial I and re4uiring the plaintiffHpetitioners to cease and desist from the operation of their business has certainly 'iolated the rights of the plaintiffHpetitioners to continue their legitimate business in the !andacan Terminal and depri'ed them of their huge in'estments they put up therein. Thus, before the Court, therefore, determines hether the Ordinance in 4uestion is 'alid or not, a 5rit of !reliminary In#unction and a 5rit of +andatory In#unction be issued to pre'ent serious and irreparable damage to plaintiffHpetitioners. /3

N"7*e#e !n

*e 8'd9e:$ d!$+'$$!"n +an 7e $ee

*a , !n add! !"n " a $*"7!n9 ". a +/ea# /e9a/ #!9* ". C*e&#"n and S*e// +"n&!n+ed *a " *e #e;ed- $"'9* , *e 7a$ *ad ;ade "' a +a$e ". " *e

*e-

'n+"n$ ! ' !"na/! - "# !n&a/!d! - $ #"n9 en"'9* "&e#+";e "#d!nan+e. *e ,#e$';, !"n ". &a/!d! ".

St!t$tes !n" or"0n!n/es !re .res$#e" 4!%0"

$n%ess !n" $nt0% t1e /o$rts "e/%!re t1e /ontr!r) 0n /%e!r !n" $ne=$04o/!% ter#s.66 T1e #ere ,!/t t1!t t1e or"0n!n/e 0s !%%e&e" to (e $n/onst0t$t0on!% or 0n4!%0" -0%% not ent0t%e ! .!rt) to 1!4e 0ts en,or/e#ent en8o0ne".63 T1e .res$#.t0on 0s !%% 0n ,!4or o, 4!%0"0t). T1e re!son ,or t10s 0s o(40o$s:

/3 // /.

Rollo, pp. 30.?300. 0alley (rading o." Inc. v. FI of Isa*ela, ;r. II, s#pra note /4. I ., citations omitte .

The action of the elected representati'es of the people cannot be lightly set aside. The councilors must, in the 'ery nature of things, be familiar ith the necessities of their particular municipality and ith all the facts and circumstances hich surround the sub#ect and necessitate action. The local legislati'e body, by enacting the ordinance, has in effect gi'en notice that the regulations are essential to the ell being of the people . . . The Iudiciary should not lightly set aside legislati'e action hen there is not a clear in'asion of personal or property rights under the guise of police regulation.2. J @ / @ / ...$Courts% accord the presumption of constitutionality to legislati'e enactments, not only because the legislature is presumed to abide by the Constitution but also because the #udiciary$,% in the determination of actual cases and contro'ersies$,% must reflect the isdom and #ustice of the people as e/pressed through their representati'es in the e/ecuti'e and legislati'e departments of the go'ernment./9

T1e o0% /o#.!n0es !r&$e t1!t t10s .res$#.t0on #$st (e set !s0"e -1en t1e 0n4!%0"0t) or $nre!son!(%eness !..e!rs on t1e ,!/e o, t1e or"0n!n/e 0tse%,. 30 Ee see no re!son to set !s0"e t1e .res$#.t0on. T1e or"0n!n/e, on 0ts ,!/e, "oes not !t !%% !..e!r to (e $n/onst0t$t0on!%. It re/%!ss0,0e" t1e s$(8e/t !re! ,ro# 0n"$str0!% to /o##er/0!%. Prima facie, t10s .o-er 0s -0t10n t1e .o-er o, #$n0/0.!% /or.or!t0ons:
The po er of municipal corporations to di'ide their territory into industrial, commercial and residential <ones is recogni<ed in almost all #urisdictions inasmuch as it is deri'ed from the police po er itself and is e/ercised for the protection and benefit of their inhabitants. .1 J @ / @ /
/0

/9 .2

.1

4r/ita'Malate Hotel and Motel +perators $ssociation" Inc. v. Hon. ity Mayor of Manila , 12. Phil. 32/, 314?313 (19/.), citin# US v. Salaveria, 39 Phil. 122, 111 (1910). $ngara v. 4lectoral o//ission, /3 Phil. 139, 130?139 (193/). =emoran )m o% oil companies, p. 30, citin# ity of Manila v. -ag#io" 1r. , *.&. 1o. 11012., 12 "pril 2223, 433 5C&" 320, 330?339. People v. ,e 2#3/an" et al., 92 Phil. 132, 133 (1931), citations omitte .

There can be no doubt that the City of +anila has the po er to di'ide its territory into residential and industrial <ones, and to prescribe that offensi'e and un holesome trades and occupations are to be established e/clusi'ely in the latter <one. J// /// ///

,i(e ise, it cannot be denied that the City of +anila has the authority, deri'ed from the police po er, of forbidding the appellant to continue the manufacture of toyo in the <one here it is no situated, hich has been declared residential.... .2

o$rts -0%% not 0n4!%0"!te !n or"0n!n/e $n%ess 0t /%e!r%) !..e!rs t1!t 0t 0s $n/onst0t$t0on!%. T1ere 0s no s$/1 s1o-0n& 1ere. T1ere,ore, t1e 0n8$n/t04e -r0ts 0ss$e" 0n t1e 2!n0%! RT Hs 2!) 1D, 200* or"er 1!" no %e& to st!n" on. Ee !re !-!re t1!t t1e 0ss$!n/e o, t1ese 0n8$n/t04e -r0ts 0s not (e0n& !ss!0%e" !s t!0nte" -0t1 &r!4e !($se o, "0s/ret0on. ?o-e4er, -e !re /on,ronte" -0t1 t1e =$est0on o, -1et1er t1ese -r0ts 0ss$e" () ! %o-er /o$rt !re 0#.e"0#ents to t1e en,or/e#ent o, Or"0n!n/e No. +023 5-10/1 0s t1e s$(8e/t o, t1e mandamus .et0t0on6. -e r$%e 0n t1e ne&!t04e. As !%re!") "0s/$sse",

ORDINANCE NO. 3456 2AS NOT SUPERSEDED BY ORDINANCE NO. 3<<=

.2

Seng 5ee 6 o. v. 4arnsha% and Piatt, 3/ Phil. 224, 212?213 (1931).

T1e

2!r/1

3,

2003

"e/0s0on

"0"

not

t!7e

0nto

/ons0"er!t0on t1e .!ss!&e o, Or"0n!n/e No. +11D ent0t%e" @An Or"0n!n/e A"o.t0n& t1e 2!n0%! o#.re1ens04e L!n" Use

P%!n !n" Zon0n& Re&$%!t0ons o, 2006 !n" Pro40"0n& ,or t1e A"#0n0str!t0on, En,or/e#ent !n" A#en"#ent t1eretoA -10/1 -!s !..ro4e" () res.on"ent on <$ne 16, 2006. re!son -!s t1!t t1e or"0n!n/e. E10%e /o$rts !re re=$0re" to t!7e 8$"0/0!% not0/e o, t1e %!-s en!/te" () on&ress, t1e r$%e -0t1 res.e/t to %o/!% T1e s0#.%e

o$rt -!s ne4er 0n,or#e" !(o$t t10s

or"0n!n/es 0s "0,,erent. Or"0n!n/es !re not 0n/%$"e" 0n t1e en$#er!t0on o, #!tters /o4ere" () #!n"!tor) 8$"0/0!% not0/e $n"er Se/t0on 1, R$%e 12D o, t1e R$%es o, o$rt. .3

A%t1o$&1, Se/t0on 50 o, RA ;0D3; .ro40"es t1!t:

SEC. D7 Iudicial notice of ordinances. B "ll courts sitting in the city shall ta(e #udicial notice of the ordinances passed by the $Sangguniang Panglungsod%.

T10s /!nnot (e t!7en to #e!n t1!t t10s se!t 0n t1e

.3

o$rt, s0n/e 0t 1!s 0ts

0t) o, 2!n0%!, s1o$%" 1!4e t!7en ste.s to

.4

5ec. 1. @) icial notice, when man atory. ? " co)rt shall take O) icial notice, witho)t intro )ction o% e+i ence, o% the existence an territorial extent o% states, their political history, %orms o% #o+ernment an sym-ols o% nationality, the law o% nations, the a miralty an maritime co)rts o% the worl an their seals, the political constit)tion an history o% the Philippines, the o%%icial acts o% the le#islati+e, exec)ti+e an O) icial epartments o% the Philippines, the laws o% nat)re, the meas)re o% time an the #eo#raphical i+isions. &e+ise Charter o% the City o% =anila.

.ro/$re ! /o.) o, t1e or"0n!n/e on 0ts o-n, re%0e40n& t1e .!rt) o, !n) "$t) to 0n,or# t1e o$rt !(o$t 0t.

E4en -1ere t1ere 0s ! st!t$te t1!t re=$0res ! /o$rt to t!7e 8$"0/0!% not0/e o, #$n0/0.!% or"0n!n/es, ! /o$rt 0s not re=$0re" to t!7e 8$"0/0!% not0/e o, or"0n!n/es t1!t !re not (e,ore 0t !n" to -10/1 0t "oes not 1!4e !//ess. T1e .!rt) !s70n& t1e /o$rt to t!7e 8$"0/0!% not0/e 0s o(%0&!te" to s$..%) t1e /o$rt -0t1 t1e ,$%% te9t o, t1e r$%es t1e .!rt) "es0res 0t to 1!4e not0/e o,..3 o$nse% s1o$%" t!7e t1e 0n0t0!t04e 0n

re=$est0n& t1!t ! tr0!% /o$rt t!7e 8$"0/0!% not0/e o, !n or"0n!n/e e4en -1ere ! st!t$te re=$0res /o$rts to t!7e 8$"0/0!% not0/e o, %o/!% or"0n!n/es. ./ T1e 0ntent o, ! st!t$te re=$0r0n& ! /o$rt to t!7e 8$"0/0!% not0/e o, ! %o/!% or"0n!n/e 0s to re#o4e !n) "0s/ret0on ! /o$rt #0&1t 1!4e 0n "eter#0n0n& -1et1er or not to t!7e not0/e o, !n or"0n!n/e. S$/1 ! st!t$te "oes not "0re/t t1e /o$rt to !/t on 0ts o-n 0n o(t!0n0n& e40"en/e ,or t1e re/or" !n" ! .!rt) #$st #!7e t1e or"0n!n/e !4!0%!(%e to t1e /o$rt ,or 0t to t!7e not0/e.33
.3

./

..

29 "m@)r 2 13/, E+i ence, 5ection 12/ citin# Fa#str#/ v. )oard of Fire 6 Police o//7rs , (2 $ist) 242 III "pp 3 94., 101 Ill $ec 3/., /20 1E2 /42, app en 131 III 2 3/3, 10/ III $ec 302, /1/ 1E2 333. I ., citin# ,rea/ Mile l#*" Inc. v. (o*yhanna (o%nship )d. of S#pervisors , 132 Pa Cmwlth 329, /13 "2 931. I .

In 0ts "e,ense, res.on"ent /%!0#e" t1!t 1e "0" not 0n,or# t1e o$rt !(o$t t1e en!/t#ent o, Or"0n!n/e No. +11D

(e/!$se 1e (e%0e4e" t1!t 0t -!s "0,,erent ,ro# Or"0n!n/e No. +023 !n" t1!t t1e t-o -ere not 0n/ons0stent -0t1 e!/1 ot1er.3+ In t1e s!#e -!) t1!t -e "ee# t1e 0nter4enorsH %!te 0nter4ent0on 0n t10s /!se $n8$st0,0e", -e ,0n" t1e ,!0%$re o, res.on"ent, -1o -!s !n or0&0n!% .!rt) 1ere, 0ne9/$s!(%e.

T(E RULE ADMISSIONS APPLICABLE RESPONDENT

ON IS

JUDICIAL NOT AGAINST

T1e o0% /o#.!n0es !ssert t1!t res.on"ent 8$"0/0!%%) !"#0tte" t1!t Or"0n!n/e No. +023 -!s re.e!%e" ()

Or"0n!n/e No. +11D 0n /040% /!se no. 0*-106*3D 5-1ere Petron !ss!0%e" t1e /onst0t$t0on!%0t) o, Or"0n!n/e No. +0236 -1en t1e .!rt0es 0n t1e0r 8o0nt #ot0on to -0t1"r!- /o#.%!0nt !n" /o$nter/%!0# st!te" t1!t @t1e 0ss$e ...1!s (een ren"ere" #oot !n" !/!"e#0/ () 40rt$e o, t1e .!ss!&e o, BOr"0n!n/e No. +11DC.A3D T1e) /onten" t1!t s$/1 !"#0ss0on -or7e" !s
.0 .9

9ranscript o% "pril 11, 222. (ral "r#)ments, p. 244. Rollo, p. /90.

!n esto..e% !&!0nst t1e res.on"ent. Res.on"ent /o$ntere" t1!t t10s st0.$%!t0on s0#.%) #e!nt t1!t Petron -!s re/o&n0:0n& t1e 4!%0"0t) !n" %e&!%0t) o, Or"0n!n/e No. +023 !n" t1!t 0t 1!" /on/e"e" t1e 0ss$e o, s!0" or"0n!n/eHs /onst0t$t0on!%0t), o.t0n& 0nste!" to =$est0on t1e 4!%0"0t) o, Or"0n!n/e No. +11D. 02 T1e o0% /o#.!n0es "en) t10s !n" ,$rt1er !r&$e t1!t res.on"ent, 0n 10s !ns-er 0n /040% /!se no. 06-115**; 5-1ere 1e4ron !n" S1e%% !re !s70n& ,or

t1e n$%%0,0/!t0on o, Or"0n!n/e No. +11D6, e9.ress%) st!te" t1!t Or"0n!n/e No. +11D re.%!/e" Or"0n!n/e No. +023:01
... 9nder Ordinance No. .7-8, businesses hose uses are not in accord ith the reclassification ere gi'en si/ months to cease $their% operation. Ordinance No. 8119, which in effect, replaced Ordinance [No.] 8 !", merely too( note of the time frame pro'ided for in Ordinance No. .11:.... Ordinance No. .11: thus pro'ided for an e'en longer term, that is$,% se'en yearsC02 1Emphasis supplied3

R$%e 12D, Se/t0on ; o, t1e R$%es o,

o$rt .ro40"es:

Section ;. Iudicial admissions. F "n admission, 'erbal or ritten, made by a party in the course of the proceedings in the same case, does not re4uire proof. The admission may be contradicted only by sho ing that it as made through palpable mista(e or that no such admission as made. 1Emphasis supplied3

E10%e 0t 0s tr$e t1!t ! .!rt) #!70n& ! 8$"0/0!% !"#0ss0on /!nnot

02 01 02

s$(se=$ent%)

t!7e

.os0t0on

/ontr!r)

to

or

=emoran )m o% respon ent, pp. 32?31. =emoran )m o% oil companies, p. 2/. "nswer, para#raphs 22.1 an 22.3, pp. 22?21.

0n/ons0stent -0t1 -1!t -!s .%e!"e", 03 t1e !,orest!te" r$%e 0s not !..%0/!(%e 1ere. Res.on"ent #!"e t1e st!te#ents re&!r"0n& t1e or"0n!n/es 0n /040% /!se nos. 0*-106*3D !n" 06-115**; -10/1 !re not @t1e s!#eA !s t10s /!se (e,ore $s. 04 To /onst0t$te ! 8$"0/0!% !"#0ss0on, t1e !"#0ss0on #$st (e #!"e 0n t1e s!#e /!se 0n -10/1 0t 0s o,,ere". ?en/e, res.on"ent 0s not esto..e" ,ro# /%!0#0n& t1!t Or"0n!n/e No. +11D "0" not s$.erse"e Or"0n!n/e No. +023. On t1e /ontr!r), 0t 0s t1e o0% /o#.!n0es -10/1 s1o$%" (e /ons0"ere" esto..e". T1e) re%) on t1e !r&$#ent t1!t Or"0n!n/e No. +11D s$.erse"e" Or"0n!n/e No. +023 ($t, !t t1e s!#e t0#e, !%so 0#.$&n 0ts 5+11DHs6 4!%0"0t). Ee ,ro-n on t1e !"o.t0on o, 0n/ons0stent .os0t0ons !n" "0str$st !n) !tte#.t !t /%e4er .os0t0on0n& $n"er one or t1e ot1er on t1e (!s0s o, -1!t !..e!rs !"4!nt!&eo$s !t t1e #o#ent. P!rt0es /!nnot t!7e 4!/0%%!t0n& or /ontr!r) .os0t0ons re&!r"0n& t1e 4!%0"0t) o, ! st!t$te03 or or"0n!n/e. Nonet1e%ess, -e -0%% %oo7 0nto t1e #er0ts o, t1e !r&$#ent o, 0#.%0e" re.e!%.

ORDINANCE NO. 3<<= DID

03

04 03

$lfelor v. Halasan, s#pra note 3/ at 4/2, citin# #nanan v. $/paro, 02 Phil. 22., 232 (1940), in t)rn citin# Mc,aniel v. $paci*le, 44 Phil. 240 (1922). Rep#*lic 2lass orporation v. 8#a, *.&. 1o. 144413, 32 @)ly 2224, 433 5C&" 402, 492. Rep#*lic of the Philippines v. o#rt of $ppeals , 339 Phil. 332, 302 (1990), &omero, @., separate opinion.

NOT IMPLIEDLY REPEAL ORDINANCE NO. 3456

>ot1 t1e o0% /o#.!n0es !n" DOE !r&$e t1!t Or"0n!n/e No. +11D re.e!%e" Or"0n!n/e No. +023. T1e) !ssert t1!t

!%t1o$&1 t1ere -!s no e9.ress re.e!% +6 o, Or"0n!n/e No. +023, Or"0n!n/e No. +11D 0#.%0e"%) re.e!%e" 0t. A//or"0n& to t1e o0% /o#.!n0es, Or"0n!n/e No. +11D re/%!ss0,0e" t1e !re! /o4er0n& t1e P!n"!/!n Ter#0n!%s to @?0&1 Dens0t) Res0"ent0!%F209e" Use Zone 5R-*F2KD6A 0.
0/

0.

5ec. 04 o% (r inance 1o. 0119 pro+i esE !&epealin# Cla)se. ? "ll or inances, r)les or re#)lations in con%lict with the pro+isions o% this (r inance are here-y repeale > PR+0I,4," 9hat the ri#hts that are +este )pon the e%%ecti+ity o% this (r inance shall not -e impaire ., (Rollo, p. 493.) =emoran )m o% oil companies, pp. 44?43, citin# "nnex !C, o% (r inance 1o. 0119. "nnex !C, (Rone ;o)n aries) o% (r inance 1o. 0119 en)merates an speci%ies the areas co+ere -y the i%%erent 'onesE !Ci#h $ensity &esi entialG=ixe 7se Rone &?3G=S$ ColorE Tellow $istrict I 1. area co+ere -y 5mokey =o)ntain $e+elopment an &eclamation ProOect. 2. area -o)n e on the 1 -y =anilaU1a+otas -o)n ary, on the 5< -y Estero e =aypaOo, on the 1< -y =alaya, on the 1E -y 5imeon e @es)s, an on the 1< -y 9ali-a 3. area -o)n e on the 1 -y Estero e =aypaOo, on the 5< -y Estero e 5)no# "po#G&o ri#)e', on the 1< -y To)n#er, an on the 1E -y Estaro e =aypaOo 4. area occ)pie -y a portion in Bitas Complex (as in icate in the Ronin# =ap) 3. area -o)n e on the 5E -y F. Barona, on the 5< -y 6allana, on the 1< -y &oxas, an on the 1E -y @acinto /. area -o)n e on the E -y Estero e Bitas, on the 5< -y C?2 &oa , on the 1< -y BelasQ)e', an on the 1E -y (sorio .. area -o)n e on the 5E -y Barona, on the 1< -y Piton# *atan#, on the 5< -y 6acson, on the 5 -y Chesa, on the < -y M)e'on, on the 1< -y 6iwayway, on the < -y *arcia, an on the 1E -y Car-osa (except the area co+ere -y C?2G=S$ Rone U area -o)n e on the 1 -y ;)lacan, on the E -y =a#saysay, on the 5 -y $an an, an on the < -y *arcia) 0. area -o)n e on the 5E -y Estero e Bitas, on the 5< -y Ramora, on the 1< -y Cer-osa, on the 5< -y Franco, on the 1< -y ConchaG1olasco, on the 5E -y Pa+ia, on the 1E 5ta. =aria, on the 5< -y Perla, on the < -y Barona, on the 1E -y Cer-osa on the 1< -y BelasQ)e', an on the 1E -y Inocencio (except the area co+ere -y I15?* U -o)n e on the 5E -y $an an, on the 5< -y 5ta. =aria, an on the 1< -y PeValosaG5ta. =aria) 9. area -o)n e on the 5E -y Corc)eraGEstero ela &eina, on the 1< -y Pa+ia, an on the 1E -y @. 6)na 12. area -o)n e on the 5E -y a line parallelGexten in# %rom "rQ)eros, on the 5< -y $ist. 1G$ist. II -o)n ary on the 1< -y a line parallelGexten in# %rom &ica%ort, an on the 1E -y $a#)pan Ext. 11. area -o)n e on the E -y $ama e 1oche, on the 5< -y 6akan )la, on the 5E -y "s)ncion,

-1ere!s Or"0n!n/e No. +023 re/%!ss0,0e" t1e s!#e !re! ,ro# In"$str0!% II to o##er/0!% I:

SECTION 1. For the purpose of promoting sound urban planning and ensuring health, public safety, and general elfare of the residents of !andacan and Sta. "na as ell as its ad#oining areas, the land use of $those% portions of land bounded by the !asig &i'er
on the 5< -y C.=. &ecto, on the < -y $el Pan, on the 5 -y Rara#osa, on the < -y Aa#itin#an, an on the 1G1E -y 9)a'on $istinct II 1. 2. 3. 4. 3. /. area -o)n e on the 1 -y =anila?Aalookan -o)n ary, an on the EG5G< -y Estero e =aypaOo area -o)n e ion the 1 -y =anila?Aalookan -o)n ary, on the 5< -y @. 6)na, on the 1< -y "ntipolo, an on the 1E -y Estero e 5)no# "po# area -o)n e on the 5E -y "+ellana, on the 5< -y $a#)pan, on the 1< -y ;)alcan, an on the 1E -y @. 6)na area -o)n e on the 5E -y =anila?Aalookan -o)n ary, on the 5< -)y &i'al "+en)e, on the 1< -y 9eo oroG9a-oraGEstero e =aypaOo an on the 1G1<G1E -y =anila?Aalookan -o)n ary area -o)n e on the 5E -y 6a#)na, on the 5< -y Estero e 5an 6a'aro, on the 5 -y Cerrera, an on the 1E -y @. "-a 5antos area -o)n e on the 5E -y a line parallelGexten in# %rom "rQ)eros, on the 5< -y ". &i+era, on the 1< -y a line parallelGexten in# %rom 6a 9orre, an on the 1E -y $ist. I U $ist. II -o)n ary

1. 2.

$istrict III area -o)n e on the 5E -y Ch) Chin &oa , on the E -y 6. &i+era, on the 1< -y ")rora ;l+ ., an on the 1E -y 6iat 5) area -o)n e on the 1 -y 6a#)na, on the E -y 9. =ap)a, on the 5 -y 5. Cerrera, an on the < -y $ist II U $ist. III -o)n ary $istrict IB 1. area -o)n e on the 5E -y =anila?M)e'on City -o)n ary, on the 5< -y Piy =ar#al, on the 1< -y CasaVas, on the 5< -y $apitan, on the 1< -y I-arra, an on the 1E -y 5imo)n 2. area -o)n e on the 5E -y P1& &ailway, on the 5< -y 6ar i'a-al, on the 5E -y =. ela F)ente, on the 1< -y a lien parallelGexten in# %rom 5an @ose II, on the 1< -y 6oreto, on the 1E -y 9)a'on, on the 1< -y =. ela F)ente, an on the 1E -y EspaVa 3. area -o)n e on the 5E -y =atimyasG;l)mentritt, on the 5E -y 5o-rie a Ext., on the 1< -y "ntipolo, an on the 1E -y 5. 6oyola, (except the area co+ere -y 6e#ar a Elem. 5chool) 4. area -o)n e on the 5E =anila?M)e'on City -o)n ary, on the 5<G1< -y ;l)mentritt, an on the 1E -y =atimyas 3. area -o)n e on the 5E -y ;l)mentritt, on the 5< -y 9)a'on, on the 1< -y "ntipolo, an on the 1E -y 5o-rie a (except the area -o)n e -y =ost Coly 9rinity Parish Ch)rchGColy 9rinity "ca emy) /. area -o)n e on the 5E -y =anila?M)e'on City -o)n ary, on the 5 -y 5ocie#o, on the E -y 5antol, on the 5 -y one (1) -lock so)th o% Esco a, on the < -y one (1) -lock west o% 5antol, on the 5 -y one (12 -lock so)th o% 9)a'on, on the 5E -y PiVa, on the 5 -y Bi#an, on the E -y 5antia#o, on the 1< -y P1& &ailway, an on the 1E -y *. 9)a'on (except the area occ)pie -y a portion o% ;)r#os Elem. 5chool) $istrict B 1. area occ)pie -y an area in ;aseco Compo)n (as in icate in the Ronin# =ap 2. area occ)pie -y En#ineerin# Islan 3. area -o)n e on the 5E -y Estero e Pan acan, on the 5< -y M)irino "+en)e, on the 5 -y

in the north, !N& &ailroad Trac( in the east, )eata St. in the south, !alumpong St. in the south est, and Estero de !ancacan in the est$,% !N& &ailroad in the north est area, Estero de !andacan in the $n%ortheast, !asig &i'er in the southeast and *r. +.,. Carreon in the south est. The area of !unta, Sta. "na bounded by the !asig &i'er, +arcelino Obrero St., +ayo -. St., and F. +analo Street, are hereby reclassified from #ndustrial ## to $ommercial # . 1Emphasis supplied3

4. 3. /. .. 0. 9.

Pla'a $ilao, on the 1< -y Pres. M)irino "+en)e, on the 1E -y the property line o% *rayline Phils. Inc. (except the area occ)pie -y Pla'a ela Bir#enG=.". &oxas Ci#h 5chool) area -o)n e on the 5E -y Estero e Pan acan, on the 5< -y Estero 9ripa e *allinaGPe ro *il, on the E -y (nyx, on the 5< -y Estero 9ripa e *allina, on the 1<G1E -y P1& &ailway (except the area occ)pie -y Concor ia Colle#e) area -o)n e on the 1E -y Pe ro *il, on the 5E -y Pasi# 6ine, on the 5< -)y F. 9orres, an on the 1<G< -y (nyx area -o)n e on the 5E -y one (1) -lock northwest o% 9eOeron, on the 5< -y F. 9orres, on the 5E -y Pasi# 6ine, on the 5< -y Estra a, on the 1< -y (nyx, an on the 5< -y ". Francisco area -o)n e on the 5E -y @imene', on the 5< -y Franco, on the 5E -y "la-astro, on the 1E -y roa parallelGexten in# to @a e, on the 5E -y 9opacio, on the 5< -y Estra a, on the 1< -y P1& &ailway, an on the 1E -y Estero 9ripa e *allina area -o)n e on the 5E -y P1& &ailway, on the 5< -y Estra a, on the 5E -y el Pilar, on the 5< -y $on Pe ro, on the 5E -y ". "Q)ino, on the 5< -y P. (campo, 5r., an on the 1< -y $iamante area -o)n e on the 1E -y 5an "n res, on the 5< -y $iamante, on the 5 -y Rapanta, on the 1< -y 5in#alon#, on the 1E -y Con#. ". Francisco, an on the 1E -y 6inao.

$istrict BI 1. area -o)n e on the 5EG5< -y =anila?M)e'on City -o)n aryG5an @)an &i+er, on the 1< -y P1& &ailway, an on the 1G1E -y &. =a#saysay ;l+ . (except the area occ)pie -y C? 3G=S$ U area -o)n e -y &. =a#saysay an 5antol Ext.Garea -o)n e -y &. =a#saysay ;al o+ino, Cintoloro, &oa 2, ;)en+iaOe, an B. =apa) 2. area -o)n e on the 5E -y P1& &ailway, on the 5< -y 5an @)an &i+er, on the 1E -y $alisay, on the 1< -y 6)-iran, an on the 1E -y Cor eleria 3. area -o)n e on the 5E -y 5an @)an &i+er, on the 5< -y =anila?=an al)yon# -o)n aryGPana eros, an on the 1<G5<G1E -y Pasi# &i+er 4. area -o)n e on the EG5< -y Pres. M)irino "+en)e, an on the 1<G1E -y Estero e Pan acan 3. area -o)n e on the 5EGE -y Estero e Pan acan, on the < -y Pres. M)irino "+en)e, an on the 1E -y Pasi# &i+er /. area -o)n e on the 5E -y Pasi# &i+er, on the 5< -y P1& &ailway, on the 1<G5< -y Estero e Pan acan,GP1& rail tracks, on the 1< -y Pres. M)irino "+en)e, an on the 1E -y Estero e Pan acan .. area -o)n e on the 1 -y Estero e Pan acan, on the 5< -y P1& rail tracks, an on the 1< -y Estero e Pan acan 0. area -o)n e on the 5< -y Aahil)mGFelix, on the 1< -y Pe ro *il, on the 1< -y Pe ro *il, on the 1E -y Estero 9ripa e *allina, on the 1< -y Estero e Pan acan, an on the 1E ;y Pres. M)irino "+en)e 9. area -o)n e on the 5E -y Estero e Pan acan, on the 5<G5E -y Pasi# &i+er, on the E -y a line parallelGexten in# %orm Bista on the so)th si e, on the 5< -y Pe ro *il, on the 1< -y =. 6. Carreon, an on the 1E -y P1& &ailway 12. area -o)n e on the 5EG5< -y Pasi# &i+erG=anila?=akati -o)n ary on the 1< -y 9eOeron, an on the 1E -y Pe ro *ilG1ew Pana eros., 5ection 12 o% (r inance 1o. 0119 states the allowa-le )ses o% an &?3G=S$ 'oneE !5ec. 12. 7se &e#)lations in 8&?3G=S$:. ? "n &?3G=S$ shall -e )se primarily %or hi#h?rise ho)sin#G wellin# p)rposes an limite complementaryGs)pplementary tra e, ser+ices an

2oreo4er, Or"0n!n/e No. +11D .ro40"es ,or ! .1!se-o$t o, se4en )e!rs:

SEC. 8-. E/isting NonBConforming 9ses and )uildings. B The la ful use of any building, structure or land at the time of the adoption of this Ordinance may be continued, although such use does not conform ith the pro'ision of the Ordinance, pro'idedG /// /// ///

(g) In case the nonBconforming use is an industrial useG

/// /// ///

d. %he land use classified as non&conforming shall program the phase&out and relocation of the non& conforming use within seven '"( years from the date of effectivity of this Ordinance. 1Emphasis supplied3

T10s 0s o..ose" to Or"0n!n/e No. +023 -10/1 /o#.e%s !,,e/te" ent0t0es to 4!/!te t1e !re! -0t10n s09 #ont1s ,ro# t1e e,,e/t040t) o, t1e or"0n!n/e:
SEC. 0. O ners or operators of industries and other businesses, the operation of hich are no longer permitted under Section 1 hereof, are hereby gi'en a period of si/ 123 months from the date of effecti'ity of this Ordinance ithin hich to cease and desist from the operation of businesses hich are hereby in conse4uence, disallo ed.

Or"0n!n/e No. +11D !%so "es0&n!te" t1e P!n"!/!n o0% "e.ot !re! !s ! @P%!nne" Un0t De4e%o.#entFO4er%!) Zone 5O-PUD6A:
SEC. -0. 9se &egulations in !lanned 9nit *e'elopmentHO'erlay Kone 1OB!9*3. L OB!9* Kones are identified specific sites in the
-)siness acti+ities. En)merate -elow are the allowa-le )sesE xxx xxx xxx,

City of +anila herein the pro#ect site is comprehensi'ely planned as an entity 'ia unitary site plan hich permits fle/ibility in planningH design, building siting, complementarily of building types and land uses, usable open spaces and the preser'ation of significant natural land features, pursuant to regulations specified for each particular !9*. Enumerated belo are identified !9*G /// /// ///

2. )andacan Oil *epot +rea /// /// ///

Enumerated belo are the allo able usesG 1. all uses allo ed in all <ones here it is located -. the $,and 9se Intensity Control 1,9IC3% under hich <ones are located shall, in all instances be complied ith 0. the 'alidity of the prescribed ,9IC shall only be $superseded% by the de'elopment controls and regulations specified for each !9* as pro'ided for each !9* as pro'ided for by the masterplan of respecti'e !9*s.++ 1Emphasis supplied3

Res.on"ent /%!0#s t1!t 0n .!ss0n& Or"0n!n/e No. +11D, t1e Sanggunian "0" not 0nten" to re.e!% Or"0n!n/e No. +023 ($t #e!nt 0nste!" to /!rr) o4er +023Hs .ro40s0ons to +11D ,or t1e .$r.ose o, #!70n& Or"0n!n/e No. +023 !..%0/!(%e to t1e o0% /o#.!n0es e4en !,ter t1e .!ss!&e o, Or"0n!n/e No. +11D.09 ?e =$otes !n e9/er.t ,ro# t1e #0n$tes o, t1e <$%) 23, 200; sess0on o, t1e Sanggunian "$r0n& t1e ,0rst re!"0n& o, Or"0n!n/e No. +11D:
+ember E"&CI"G Mour 6onor, iyong patung(ol po roon sa oil depot doon sa amin sa Si/th *istrict sa !andacan, ala pong na(alagay eith sa ordinansa rito na tali as o (a(aiba roon sa ordinansang ipinasa noong na(araang Nonseho, iyong Ordinance
00 09

Rollo, pp. .42?.44. =emoran )m o% oil companies, p. 20.

No. .7-8. So (ung ano po ang nandirito sa ordinansa na ipinasa ninyo last time, iyon lang po ang niBlift eithe at inilagay eith. "t eith eith ordinansang =iyong naipasa ng huling Nonseho, niriBclassify $ninyo% from Industrial II to Commercial CB1 ang area ng !andacan (ung nasaan ang oil depot. So iniBlift lang po $eithe% iyong definition, density, at sa(a po yon pong = ng= noong ordinansa ninyo na siya eith naming inilagay eith, iniba lang po naming iyong title. ,o wala po -aming .inago na taliwas o nailagay na taliwas doon sa ordinansang ipinasa ninyo, ni&lift lang po [eithe] from Ordinance No. 8 !".?92 1Emphasis supplied3

Ee !&ree -0t1 res.on"ent. Re.e!% () 0#.%0/!t0on .ro/ee"s on t1e .re#0se t1!t -1ere ! st!t$te o, %!ter "!te /%e!r%) re4e!%s t1e 0ntent0on o, t1e %e&0s%!t$re to !(ro&!te ! .r0or !/t on t1e s$(8e/t, t1!t 0ntent0on #$st (e &04en e,,e/t.D1 T1ere !re t-o 70n"s o, 0#.%0e" re.e!%. T1e ,0rst 0s: -1ere t1e .ro40s0ons 0n t1e t-o !/ts on t1e s!#e s$(8e/t #!tter !re 0rre/on/0%!(%) /ontr!"0/tor), t1e %!tter !/t, to t1e e9tent o, t1e /on,%0/t, /onst0t$tes !n 0#.%0e" re.e!% o, t1e e!r%0er one.D2 T1e se/on" 0s: 0, t1e %!ter !/t /o4ers t1e -1o%e s$(8e/t o, t1e e!r%0er one !n" 0s /%e!r%) 0nten"e" !s ! s$(st0t$te, 0t -0%% o.er!te to re.e!% t1e e!r%0er %!-. D* T1e o0% /o#.!n0es !r&$e t1!t t1e s0t$!t0on 1ere ,!%%s $n"er t1e ,0rst /!te&or).
92 91

92

93

=emoran )m o% respon ent, p. 2.. Mecano v. o//ission on $#dit, *.&. 1o. 123902, 11 $ecem-er 1992, 21/ 5C&" 322, 323, citation omitte . ,elfino v. St. 1a/es Hospital" Inc., *.&. 1o. 1//.33, 3 5eptem-er 222/, 321 5C&" 9., 112, citin# Mecano v. o//ission on $#dit, i ., p. 32/. I .

I#.%0e" re.e!%s !re not ,!4ore" !n" -0%% not (e so "e/%!re" $n%ess t1e 0ntent o, t1e %e&0s%!tors 0s #!n0,est. D; As st!t$tes !n" or"0n!n/es !re .res$#e" to (e .!sse" on%) !,ter /!re,$% "e%0(er!t0on !n" -0t1 7no-%e"&e o, !%% e90st0n& ones on t1e s$(8e/t, 0t ,o%%o-s t1!t, 0n .!ss0n& ! %!-, t1e %e&0s%!t$re "0" not 0nten" to 0nter,ere -0t1 or !(ro&!te ! ,or#er %!- re%!t0n& to t1e s!#e s$(8e/t #!tter. D5 I, t1e

0ntent to re.e!% 0s not /%e!r, t1e %!ter !/t s1o$%" (e /onstr$e" !s ! /ont0n$!t0on o,, !n" not ! s$(st0t$te ,or, t1e e!r%0er !/t.D6 T1ese st!n"!r"s !re "ee.%) ens1r0ne" 0n o$r

8$r0s.r$"en/e. Ee "0s!&ree t1!t, 0n en!/t0n& Or"0n!n/e No. +11D, t1ere -!s !n) 0n"0/!t0on o, t1e %e&0s%!t04e .$r.ose to re.e!% Or"0n!n/e No. +023.9. T1e e9/er.t =$ote" !(o4e 0s .roo, t1!t t1ere -!s ne4er s$/1 !n 0ntent. E10%e 0t 0s tr$e t1!t (ot1 or"0n!n/es re%!te to t1e s!#e s$(8e/t #!tter, i.e. /%!ss0,0/!t0on o, t1e %!n" $se o, t1e !re! -1ere P!n"!/!n o0% "e.ot 0s %o/!te", 0, t1ere 0s no 0ntent to re.e!% t1e e!r%0er en!/t#ent, e4er) e,,ort !t re!son!(%e /onstr$/t0on #$st (e

94 93 9/ 9.

(an v. Pere9a, *.&. 1o. 149.43, 10 Fe-r)ary 2223, 432 5C&" 33, /0, citations omitte . I . S#pra note 91. See 0illegas" etc." et al. v. S#*ido, 140?; Phil. //0, /./ (19.1), citations omitte .

#!"e to re/on/0%e t1e or"0n!n/es so t1!t (ot1 /!n (e &04en e,,e/t:

The fact that a later enactment may relate to the same sub#ect matter as that of an earlier statute is not of itself sufficient to cause an implied repeal of the prior act, since the ne statute may merely be cumulati'e or a continuation of the old one. 5hat is necessary is a manifest indication of legislati'e purpose to repeal. :.

'or t1e ,0rst 70n" o, 0#.%0e" re.e!%, t1ere #$st (e !n 0rre/on/0%!(%e /on,%0/t (et-een t1e t-o or"0n!n/es. T1ere 0s no /on,%0/t (et-een t1e t-o or"0n!n/es. Or"0n!n/e No. +023 re/%!ss0,0e" o##er/0!% t1e I. P!n"!/!n Or"0n!n/e !re! No. ,ro# +11D, In"$str0!% 0n II to 2*,

Se/t0on

"es0&n!te" 0t !s ! @P%!nne" Un0t De4e%o.#entFO4er%!) Zone 5O-PUD6.A In 0ts Anne9 -10/1 "e,0ne" t1e :one

(o$n"!r0es,99 t1e P!n"!/!n !re! -!s s1o-n to (e -0t10n t1e @?0&1 Dens0t) Res0"ent0!%F209e" Use Zone 5R-*F2KD6.A T1ese :one /%!ss0,0/!t0ons 0n Or"0n!n/e No. +11D !re not

0n/ons0stent -0t1 t1e re/%!ss0,0/!t0on o, t1e P!n"!/!n !re! ,ro# In"$str0!% to o##er/0!% 0n Or"0n!n/e No. +023. T1e

@O-PUDA /%!ss0,0/!t0on #ere%) #!"e P!n"!/!n ! @.ro8e/t s0te ... /o#.re1ens04e%) .%!nne" !s !n ent0t) 40! $n0t!r) s0te .%!n -10/1 .er#0ts ,%e90(0%0t) 0n .%!nn0n&F"es0&n, ($0%"0n& s0t0n&, /o#.%e#ent!r0t) o, ($0%"0n& t).es !n" %!n" $ses, $s!(%e
90 99

S#pra note 91 at 32.. See 5ection 9> rollo, p. 4/2.

o.en s.!/es !n" t1e .reser4!t0on o, s0&n0,0/!nt n!t$r!% %!n" ,e!t$res....A122 Its /%!ss0,0/!t0on !s @R-*F2KDA #e!ns t1!t 0t s1o$%" @(e $se" .r0#!r0%) ,or 10&1-r0se 1o$s0n&F"-e%%0n& .$r.oses !n" %0#0te" /o#.%e#ent!r)Fs$..%e#ent!r) tr!"e, ser40/es !n" ($s0ness !/t040t0es.A121 T1ere 0s no /on,%0/t s0n/e (ot1 or"0n!n/es !/t$!%%) 1!4e ! /o##on o(8e/t04e, i.e., to s10,t t1e :on0n& /%!ss0,0/!t0on ,ro# 0n"$str0!% to /o##er/0!% 5Or"0n!n/e No. +0236 or #09e" res0"ent0!%F/o##er/0!%

5Or"0n!n/e No. +11D6. 2oreo4er, 0t 0s ! -e%%-sett%e" r$%e 0n st!t$tor)

/onstr$/t0on t1!t ! s$(se=$ent &ener!% %!- "oes not re.e!% ! .r0or s.e/0!% %!- on t1e s!#e s$(8e/t $n%ess 0t /%e!r%) !..e!rs t1!t t1e %e&0s%!t$re 1!s 0nten"e" () t1e %!tter &ener!% !/t to #o"0,) or re.e!% t1e e!r%0er s.e/0!% %!-. Generalia specialibus non derogant 5! &ener!% %!- "oes not n$%%0,) ! s.e/0,0/ or s.e/0!% %!-6.102 T10s 0s so e4en 0, t1e

.ro40s0ons o, t1e &ener!% %!- !re s$,,0/0ent%) /o#.re1ens04e to 0n/%$"e -1!t -!s set ,ort1 0n t1e s.e/0!% !/t. 10* T1e

s.e/0!% !/t !n" t1e &ener!% %!- #$st st!n" to&et1er, one !s t1e %!- o, t1e .!rt0/$%!r s$(8e/t !n" t1e ot1er !s t1e %!- o,
122 121 122

123

5ection 23. 5ection 12. -eynes v. o//ission on $#dit, *.&. 1o. 14339/, 11 $ecem-er 2223, 410 5C&" 102, 19/. S#pra note 9..

&ener!% !..%0/!t0on.10;

T1e s.e/0!% %!- #$st (e t!7en !s

0nten"e" to /onst0t$te !n e9/e.t0on to, or ! =$!%0,0/!t0on o,, t1e &ener!% !/t or .ro40s0on.105
The reason for this is that the legislature, in passing a la of special character, considers and ma(es special pro'isions for the particular circumstances dealt ith by the special la . This being so, the legislature, by adopting a general la containing pro'isions repugnant to those of the special la and ithout ma(ing any mention of its intention to amend or modify such special la , cannot be deemed to ha'e intended an amendment, repeal or modification of the latter.172

Or"0n!n/e No. +023 0s ! s.e/0!% %!- 103 s0n/e 0t "e!%s s.e/0,0/!%%) -0t1 ! /ert!0n !re! "es/r0(e" t1ere0n 5t1e P!n"!/!n o0% "e.ot !re!6 -1ere!s Or"0n!n/e No. +11D /!n (e /ons0"ere" ! &ener!% %!- 10+ !s 0t /o4ers t1e ent0re /0t) o, 2!n0%!. T1e o0% /o#.!n0es !ssert t1!t e4en 0, Or"0n!n/e No. +023 0s ! s.e/0!% %!-, t1e e90sten/e o, !n !%%-en/o#.!ss0n& re.e!%0n& /%!$se 0n Or"0n!n/e No. +11D e40n/es !n 0ntent on t1e .!rt o, t1e Sanggunian to re.e!% t1e e!r%0er or"0n!n/e:
124

123

12/ 12.

120

Philippine .ational +il o/pany v. o#rt of $ppeals , *.&. 1o. 1299./, 2/ "pril 2223, 43. 5C&" 32, 02, citin# 4! Parte United States, 22/ 7. 5., 422> 3. 6. e ., 201> 4! Parte ro% ,og, 129 7. 5., 33/> 2. 6. e ., 1232> Partee v. St. -o#is 6 S. F. R. o., 224 Fe . &ep., 9.2. I ., citin# rane v. Reeder and Reeder , 22 =ich., 322, 334> University of Utah vs. Richards , .. "m. 5t. &ep., 920. S#pra note 122, citin# ,e 0illa v. o#rt of $ppeals, 193 5C&" .22 (1991). " special law is one which relates to partic)lar persons or thin#s o% a class, or to a partic)lar portion or section o% the state only> -eynes v. o//ission on $#dit , s#pra note 122, %ootnote no. 21, citin# U.S. v. Serapio, 23 Phil 304 81912:. " #eneral law is one which a%%ects all people o% the state or all o% a partic)lar class o% persons in the state or em-races a class o% s)-Oects or places an oes not omit any s)-Oect or place nat)rally -elon#in# to s)ch class> i ., %ootnote no. 22, citin# U.S. v. Serapio, i > 0alera v. (#ason, 02 Phil 023 (1940) an 0illegas v. S#*ido, s#pra note 9..

Sec. .;. &epealing Clause. L "ll ordinances, rules, regulations in conflict ith the pro'isions of this Ordinance are hereby repealedC PROVIDED, That the rights that are 'ested upon the effecti'ity of this Ordinance shall not be impaired.

T1e) /0te" Hospicio de San Jose de Barili, Cebu City v. epartment of !grarian Reform:10D

The presence of such general repealing clause in a later statute clearly indicates the legislati'e intent to repeal all prior inconsistent la s on the sub#ect matter, hether the prior la is a general la or a special la ... 5ithout such a clause, a later general la ill ordinarily not repeal a prior special la on the same sub#ect. )ut ith such clause contained in the subse4uent general la , the prior special la ill be deemed repealed, as the clause is a clear legislati'e intent to bring about that result. 117

T10s r$%0n& 0n not !..%0/!(%e 1ere. T1e re.e!%0n& /%!$se o, Or"0n!n/e No. +11D /!nnot (e t!7en to 0n"0/!te t1e %e&0s%!t04e 0ntent to re.e!% !%% .r0or 0n/ons0stent %!-s on t1e s$(8e/t #!tter, 0n/%$"0n& Or"0n!n/e No. +023, ! s.e/0!% en!/t#ent, s0n/e t1e !,ore=$ote" #0n$tes 5!n o,,0/0!% re/or" o, t1e "0s/$ss0ons 0n t1e Sanggunian6 !/t$!%%) 0n"0/!te" t1e /%e!r 0ntent to .reser4e t1e .ro40s0ons o, Or"0n!n/e No. +023. To s$##!r0:e, t1e /on,%0/t (et-een t1e t-o or"0n!n/es 0s #ore !..!rent t1!n re!%. T1e t-o or"0n!n/es /!n (e
129 112

*.&. 1o. 14204., 23 5eptem-er 2223, 4.2 5C&" /29. I ., p. /23, citin# &. "*P"6(, S($(U(+R: +.S(RU (I+. (2223), p. 411, in t)rn citin# 2aerlan v. at#*ig, *.&. 1o. 239/4, 1 @)ne 19//, 1. 5C&" 3./.

re/on/0%e".

Or"0n!n/e No. +023 0s !..%0/!(%e to t1e !re!

.!rt0/$%!r%) "es/r0(e" t1ere0n -1ere!s Or"0n!n/e No. +11D 0s !..%0/!(%e to t1e ent0re 0t) o, 2!n0%!.

MANDAMUS LIES RESPONDENT MAYOR ORDINANCE NO. 3456

TO TO

COMPEL ENFORCE

T1e o0% /o#.!n0es 0ns0st t1!t mandamus "oes not %0e !&!0nst res.on"ent 0n /ons0"er!t0on o, t1e se.!r!t0on o, .o-ers o, t1e e9e/$t04e !n" 8$"0/0!r). 111 #0s.%!/e". In"ee", T10s !r&$#ent 0s

$the% Courts ill not interfere by mandamus proceedings legislati'e $or e/ecuti'e departments% of the go'ernment legitimate e/ercise of its po ers, e/cept to enforce ministerial acts re0uired .y law to .e performed .y officer thereof.112 1Emphasis Supplied3

ith the in the mere some

s0n/e t10s 0s t1e ,$n/t0on o, ! -r0t o, mandamus, -10/1 0s t1e .o-er to /o#.e% @t1e .er,or#!n/e o, !n !/t -10/1 t1e %!s.e/0,0/!%%) en8o0ns !s ! "$t) res$%t0n& ,ro# o,,0/e, tr$st or st!t0on.A11* T1e) !%so !r&$e t1!t .et0t0oners 1!" ! .%!0n, s.ee") !n" !"e=$!te re#e") to /o#.e% res.on"ent to en,or/e
111

112

113

=emoran )m, p. 39, citin# Ma/a" 1r. v. o#rt of $ppeals, *.&. 1o. 0/31., 32 "pril 1991, 19/ 5C&" 409, 49/. S#anes v. hief $cco#ntant of the Senate , 01 Phil. 0.., 0.9 (1940), citin# 33 C. @., 5> sec. 132, p. 213> see also 34 "m. @)r., pp. 912?911> 93 ". 6. &. 2.3, 2..?2.0. &)le /3, 5ection 3 o% the &)les o% Co)rt.

Or"0n!n/e No. +023 -10/1 -!s to see7 re%0e, ,ro# t1e Pres0"ent o, t1e P10%0..0nes t1ro$&1 t1e Se/ret!r) o, t1e De.!rt#ent o, Inter0or !n" Lo/!% Go4ern#ent 5DILG6 () 40rt$e o, t1e Pres0"entHs .o-er o, s$.er40s0on o4er %o/!% &o4ern#ent $n0ts. A&!0n, -e "0s!&ree. A .!rt) nee" not &o ,0rst to t1e DILG 0n or"er to /o#.e% t1e en,or/e#ent o, !n or"0n!n/e. T10s s$&&este" .ro/ess -o$%" (e $nre!son!(%) %on&, te"0o$s !n" /onse=$ent%) 0n8$r0o$s to t1e 0nterests o, t1e %o/!% &o4ern#ent $n0t 5LGU6 !n" 0ts /onst0t$ents -1ose -e%,!re 0s so$&1t to (e .rote/te". >es0"es, .et0t0onersH o$rt 0s

resort to !n or0&0n!% !/t0on ,or mandamus (e,ore t10s $n"en0!(%) !%%o-e" () t1e onst0t$t0on. 114

ORDINANCE NO. 3456 IS CONSTITUTIONAL AND VALID

?!40n& r$%e" t1!t t1ere 0s no 0#.e"0#ent to t1e en,or/e#ent o, Or"0n!n/e No. +023, -e no- .ro/ee" to #!7e ! "e,0n0t04e r$%0n& on 0ts /onst0t$t0on!%0t) !n" 4!%0"0t). T1e tests o, ! 4!%0" or"0n!n/e !re -e%% est!(%0s1e". 'or !n or"0n!n/e to (e 4!%0", 0t #$st not on%) (e -0t10n t1e
114

5ection 3 (1), "rticle BIII.

/or.or!te .o-ers o, t1e LGU to en!/t !n" (e .!sse" !//or"0n& to t1e .ro/e"$re .res/r0(e" () %!-, 0t #$st !%so /on,or# to t1e ,o%%o-0n& s$(st!nt04e re=$0re#ents: 516 #$st not /ontr!4ene t1e onst0t$t0on or !n) st!t$teG 526 #$st not

(e $n,!0r or o..ress04eG 5*6 #$st not (e .!rt0!% or "0s/r0#0n!tor)G 5;6 #$st not .ro10(0t ($t #!) re&$%!te tr!"eG 556 #$st (e &ener!% !n" /ons0stent -0t1 .$(%0/ .o%0/) !n" 566 #$st not (e $nre!son!(%e.115

T(E CITY OF MANILA (AS T(E PO2ER TO ENACT ORDINANCE NO. 3456

Or"0n!n/e No. +023 -!s .!sse" () t1e Sangguniang Panlungsod o, 2!n0%! 0n t1e e9er/0se o, 0ts .o%0/e .o-er. Po%0/e .o-er 0s t1e .%en!r) .o-er 4este" 0n t1e %e&0s%!t$re to #!7e st!t$tes !n" or"0n!n/es to .ro#ote t1e 1e!%t1, #or!%s, .e!/e, e"$/!t0on, &oo" or"er or s!,et) !n" &ener!% -e%,!re o, t1e .eo.%e.11/ T10s .o-er ,%o-s ,ro# t1e

re/o&n0t0on t1!t salus populi est suprema le" 5t1e -e%,!re o,

113

11/

ity of Manila v. -ag#io" 1r. , s#pra note .2 at 32/, citin# (atel v. M#nicipality of 0irac , *.&. 1o. 42243, 11 =arch 1992, 22. 5C&" 13., 1/1> Solicitor 2eneral v. Metropolitan Manila $#thority , *.&. 1o. 122.02, 11 $ecem-er 1991, 224 5C&" 03., 043> Magta;as v. Pryce Properties orp." Inc., *.&. 1o. 11129., 22 @)ly 1994, 234 5C&" 233, 2/0?2/.. Metropolitan Manila ,evelop/ent $#thority v. 0iron (ransportation o." Inc. , *.&. 1o. 1.2/3/, 13 ")#)st 222., citin# )inay v. ,o/ingo, *.&. 1o. 92309, 5eptem-er 11, 1991, 221 5C&" 320, 314> Presidential o//ission on 2ood 2overn/ent v. Pe9a, *.&. 1o. 6?..//3, "pril 12, 1900, 139 5C&" 33/, 3.4> R#*i v. Provincial )oard of Mindoro, 39 Phil. //2, .20.

t1e .eo.%e 0s t1e s$.re#e %!-6.11. E10%e .o%0/e .o-er rests .r0#!r0%) -0t1 t1e n!t0on!% %e&0s%!t$re, s$/1 .o-er #!) (e "e%e&!te".110 Se/t0on 16 o, t1e LG , 7no-n !s t1e &ener!% -e%,!re /%!$se, en/!.s$%!tes t1e "e%e&!te" .o%0/e .o-er to %o/!% &o4ern#ents:119
Section 12. Eeneral 5elfare. F E'ery local go'ernment unit shall e/ercise the po ers e/pressly granted, those necessarily implied therefrom, as ell as po ers necessary, appropriate, or incidental for its efficient and effecti'e go'ernance, and those hich are essential to the promotion of the general elfare. 5ithin their respecti'e territorial #urisdictions, local go'ernment units shall ensure and support, among other things, the preser'ation and enrichment of culture, promote health and safety, enhance the right of the people to a balanced ecology, encourage and support the de'elopment of appropriate and selfBreliant scientific and technological capabilities, impro'e public morals, enhance economic prosperity and social #ustice, promote full employment among their residents, maintain peace and order, and preser'e the comfort and con'enience of their inhabitants.

LGUs %07e t1e t1e0r

0t) o, 2!n0%! e9er/0se .o%0/e .o-er t1ro$&1 %e&0s%!t04e (o"0es, 0n t10s /!se, t1e

res.e/t04e

Sangguniang Panlungsod or t1e /0t) /o$n/0%.

S.e/0,0/!%%),

t1e Sanggunian /!n en!/t or"0n!n/es ,or t1e &ener!% -e%,!re o, t1e /0t):
Section. ;D.. L Powers, Duties, Functions and Compensation . L 1a3 The sangguniang panglungsod, as the legislati'e branch of the city,
11. 110

119

I . I ., citin# Pangasinan (ransportation o." Inc. v. (he P#*lic Service o//ission" .2 Phil. 221, 229 (1942) an 4astern Shipping -ines" Inc. v. Philippine +verseas 4/ploy/ent $d/inistration , *.&. 1o. 6?.//33, (cto-er 10, 1900, 1// 5C&" 333, 344. Ro*le $rrastre" Inc. v. 0illaflor, *.&. 1o. 120329, 22 ")#)st 222/, 499 5C&" 434, 440.

shall enact ordinances, appro'e resolutions and appropriate funds for the general elfare of the city and its inhabitants pursuant to Section 12 of this Code ////

T10s .o%0/e .o-er -!s !%so .ro40"e" ,or 0n RA ;0D or t1e Re40se" 1!rter o, t1e 0t) o, 2!n0%!:

Section 1.. ,egislati'e po ers. @ The $City Council% shall ha'e the follo ing legislati'e po ersG /// /// ///

(g) To enact all ordinances it may deem necessary and proper for
the sanitation and safety, the furtherance of the prosperity, and the promotion of the morality, peace, good order, comfort, con'enience, and general elfare of the city and its inhabitants, and such others as may be necessary to carry into effect and discharge the po ers and duties conferred by this chapter ////122

S.e/0,0/!%%),

t1e

Sanggunian

1!s

t1e

.o-er

to

@re/%!ss0,) %!n" -0t10n t1e 8$r0s"0/t0on o, t1e /0t).A 121

T(E ENACTMENT OF ORDINANCE NO. 3456 IS A LEGITIMATE E>ERCISE OF POLICE PO2ER

As

-0t1

t1e

St!te,

%o/!%

&o4ern#ents

#!)

(e

/ons0"ere" !s 1!40n& .ro.er%) e9er/0se" t1e0r .o%0/e .o-er on%) 0, t1e ,o%%o-0n& re=$0s0tes !re #et: 516 t1e 0nterests o, t1e .$(%0/ &ener!%%), !s "0st0n&$0s1e" ,ro# t1ose o, !
122 121

"rticle III, 5ection 10 (kk). 5ection 430 (a) (2) (+iii).

.!rt0/$%!r /%!ss, re=$0re 0ts e9er/0se !n" 526 t1e #e!ns e#.%o)e" !re re!son!(%) ne/ess!r) ,or t1e !//o#.%0s1#ent o, t1e .$r.ose !n" not $n"$%) o..ress04e $.on 0n"040"$!%s. In s1ort, t1ere #$st (e ! /on/$rren/e o, ! %!-,$% s$(8e/t !n" ! %!-,$% #et1o".122 Or"0n!n/e No. +023 -!s en!/te" @,or t1e .$r.ose o, .ro#ot0n& so$n" $r(!n .%!nn0n&, ens$r0n& 1e!%t1, .$(%0/ s!,et) !n" &ener!% -e%,!reA12* o, t1e res0"ents o, 2!n0%!. T1e Sanggunian -!s 0#.e%%e" to t!7e #e!s$res to .rote/t t1e res0"ents o, 2!n0%! ,ro# /!t!stro.10/ "e4!st!t0on 0n /!se o, ! terror0st !tt!/7 on t1e P!n"!/!n Ter#0n!%s. To-!r"s

t10s o(8e/t04e, t1e Sanggunian re/%!ss0,0e" t1e !re! "e,0ne" 0n t1e or"0n!n/e ,ro# 0n"$str0!% to /o##er/0!%. T1e ,o%%o-0n& ,!/ts -ere ,o$n" () t1e o##0ttee on 0t) t1e

?o$s0n&, Resett%e#ent !n" Ur(!n De4e%o.#ent o, t1e o, 2!n0%! -10/1 re/o##en"e" t1e !..ro4!% o,

or"0n!n/e: 516 t1e "e.ot ,!/0%0t0es /ont!0ne" *1*.5 #0%%0on %0ters o, 10&1%) ,%!##!(%e !n" 10&1%) 4o%!t0%e .ro"$/ts
122

123

-#cena 2rand entral (er/inal" Inc. v. 1ac -iner" Inc. , *.&. 1o. 140339, 23 Fe-r)ary 2223, 432 5C&" 1.4, 103, citin# ,epart/ent of 4d#cation" #lt#re and Sports v. San ,iego , *.&. 1o. 093.2, 21 $ecem-er 1909, 102 5C&" 333, 33.. 5ection 1 thereo%.

-10/1 0n/%$"e .etro%e$# &!s, %0=$e,0e" .etro%e$# &!s, !40!t0on ,$e%, "0ese%, &!so%0ne, 7erosene !n" ,$e% o0% !#on& ot1ersG 526 t1e "e.ot 0s o.en to !tt!/7 t1ro$&1 %!n", -!ter or !0rG 5*6 0t 0s s0t$!te" 0n ! "ense%) .o.$%!te" .%!/e !n" ne!r 2!%!/!I!n& P!%!/e !n" 5;6 0n /!se o, !n e9.%os0on or /on,%!&r!t0on 0n t1e "e.ot, t1e ,0re /o$%" s.re!" to t1e ne0&1(or0n& /o##$n0t0es.12; T1e or"0n!n/e -!s 0nten"e" to s!,e&$!r" t1e r0&1ts to %0,e, se/$r0t) !n" s!,et) o, !%% t1e 0n1!(0t!nts o, 2!n0%! !n" not 8$st o, ! .!rt0/$%!r /%!ss. 123 T1e "e.ot 0s .er/e04e",

r0&1t%) or -ron&%), !s ! re.resent!t0on o, -estern 0nterests -10/1 #e!ns t1!t 0t 0s ! terror0st t!r&et. As %on& !s 0t t1ere 0s s$/1 ! t!r&et 0n t1e0r #0"st, t1e res0"ents o, 2!n0%! !re not s!,e. It t1ere,ore (e/!#e ne/ess!r) to re#o4e t1ese

ter#0n!%s to "0ss0.!te t1e t1re!t. A//or"0n& to res.on"ent:

Such a public need became apparent after the :H11 incident hich sho ed that hat as percei'ed to be impossible to happen, to the most po erful country in the orld at that, is actually possible. The destruction of property and the loss of thousands of li'es on that fateful day became the impetus for a public need. In the aftermath
124 123

Rollo, pp. 902?903. I ., p. 1224.

of the :H11 tragedy, the threats of terrorism continued $such% that it became imperati'e for go'ernments to ta(e measures to combat their effects.1-2

E0"e "0s/ret0on 0s 4este" on t1e %e&0s%!t04e !$t1or0t) to "eter#0ne not on%) -1!t t1e 0nterests o, t1e .$(%0/ re=$0re ($t !%so -1!t #e!s$res !re ne/ess!r) ,or t1e .rote/t0on o, s$/1 0nterests.123 %e!r%), t1e Sanggunian -!s 0n t1e (est

.os0t0on to "eter#0ne t1e nee"s o, 0ts /onst0t$ents. In t1e e9er/0se o, .o%0/e .o-er, .ro.ert) r0&1ts o, 0n"040"$!%s #!) (e s$(8e/te" to restr!0nts !n" ($r"ens 0n or"er to ,$%,0%% t1e o(8e/t04es o, t1e &o4ern#ent. 12+

Ot1er-0se st!te", t1e &o4ern#ent #!) en!/t %e&0s%!t0on t1!t #!) 0nter,ere !n" -0t1 .erson!% %0(ert), to .ro.ert), t1e %!-,$% &ener!%

($s0nesses -e%,!re.12D

o//$.!t0ons

.ro#ote

?o-e4er, t1e 0nter,eren/e #$st (e re!son!(%e

!n" not !r(0tr!r). An" to ,orest!%% !r(0tr!r0ness, t1e #et1o"s or #e!ns $se" to .rote/t .$(%0/ 1e!%t1, #or!%s, s!,et) or

-e%,!re #$st 1!4e ! re!son!(%e re%!t0on to t1e en" 0n 40e-.1*0

12/ 12. 120

129

132

I ., p. 122/. Fa*ie v. ity of Manila, 21 Phil. 40/, 492 (1912). ,idipio 4arth'Savers' M#lti'p#rpose $ssociation" Incorporated <,4S$M$= v. 2o3#n , *.&. 1o. 13.002, 32 =arch 222/, 403 5C&" 30/, /24. Patalingh#g v. o#rt of $ppeals, *.&. 1o. 124.0/, 2. @an)ary 1994, 229 5C&" 334, 339, citin# Sangalang v. Inter/ediate o#rt, *.&. 1os. .11/9, ./394, .43./ an 02201, $ecem-er 22, 1900, 1/0 5C&" /34> +rtigas 6 o. -td. Partnership v. Feati )an& and (r#st o. , 1o. 6?24/.2, $ecem-er 14, 1909, 94 5C&" 333. )alac#it v. o#rt of First Instance of $g#san del .orte and )#t#an ity" )ranch II , *.&. 1o. 6? 30429, 32 @)ne 1900 1/3 5C&" 102, 191.

T1e #e!ns !"o.te" () t1e Sanggunian -!s t1e en!/t#ent o, ! :on0n& or"0n!n/e -10/1 re/%!ss0,0e" t1e !re! -1ere t1e "e.ot 0s s0t$!te" ,ro# 0n"$str0!% to /o##er/0!%. A :on0n& or"0n!n/e 0s "e,0ne" !s ! %o/!% /0t) or #$n0/0.!% %e&0s%!t0on -10/1 %o&0/!%%) !rr!n&es, .res/r0(es, "e,0nes !n" !..ort0ons ! &04en .o%0t0/!% s$("040s0on 0nto s.e/0,0/ %!n" $ses !s .resent !n" ,$t$re .ro8e/t0on o, nee"s. 131 As ! res$%t o, t1e :on0n&, t1e /ont0n$e" o.er!t0on o, t1e ($s0nesses o, t1e o0% /o#.!n0es 0n t1e0r .resent %o/!t0on -0%% no %on&er (e .er#0tte". T1e .o-er to est!(%0s1 :ones ,or 0n"$str0!%, /o##er/0!% !n" res0"ent0!% $ses 0s "er04e" ,ro# t1e .o%0/e .o-er 0tse%, !n" 0s e9er/0se" ,or t1e .rote/t0on !n" (ene,0t o, t1e res0"ents o, ! %o/!%0t).132 onse=$ent%), t1e en!/t#ent o,

Or"0n!n/e No. +023 0s -0t10n t1e .o-er o, t1e Sangguniang Panlungsod o, t1e 0t) o, 2!n0%! !n" !n) res$%t0n& ($r"en on

t1ose !,,e/te" /!nnot (e s!0" to (e $n8$st:

There can be no doubt that the City of +anila has the po er to di'ide its territory into residential and industrial <ones, and to prescribe that offensi'e and un holesome trades and occupations are to be established e/clusi'ely in the latter <one. >The benefits to be deri'ed by cities adopting such regulations 1<oning3 may be summari<ed as follo sG They attract a desirable and assure a permanent citi<enshipC they foster pride in and attachment to the cityC they promote happiness and
131

Sta. Rosa Realty ,evelop/ent orporation v. o#rt of $ppeals , *.&. 1o. 11232/, 12 (cto-er 2221, 3/. 5C&" 1.3, 193, citin# P$ 449, 5ection 4 (-). 132 (an hat v. M#nicipality of Iloilo, /2 Phil. 4/3, 4.3 (1934).

contentmentC they stabili<e the use and 'alue of property and promote the peace, $tran4uility%, and good order of the city. 5e do not hesitate to say that the attainment of these ob#ects affords a legitimate field for the e/ercise of the police po er. 6e ho o ns property in such a district is not depri'ed of its use by such regulations. 6e may use it for the purposes to hich the section in hich it is located is dedicated. That he shall not be permitted to use it to the desecration of the community constitutes no unreasonable or permanent hardship and results in no un#ust burden.? J// /// ///

>The 1;th "mendment protects the citi<en in his right to engage in any la ful business, but it does not pre'ent legislation intended to regulate useful occupations hich, because of their nature or location, may pro'e in#urious or offensi'e to the public.? 133

Ee entert!0n no "o$(t t1!t Or"0n!n/e No. +023 0s ! 4!%0" .o%0/e .o-er #e!s$re (e/!$se t1ere 0s ! /on/$rren/e o, %!-,$% s$(8e/t !n" %!-,$% #et1o".

ORDINANCE NO. 3456 IS NOT UNFAIR, OPPRESSIVE OR CONFISCATORY 2(IC( AMOUNTS TO TAKING 2IT(OUT COMPENSATION

A//or"0n& to t1e o0% /o#.!n0es, Or"0n!n/e No. +023 0s $n,!0r !n" o..ress04e !s 0t "oes not on%) re&$%!te ($t !%so !(so%$te%) .ro10(0ts t1e# ,ro# /on"$/t0n& o.er!t0ons 0n t1e 0t) o, 2!n0%!. Res.on"ent /o$nters t1!t t10s 0s not !//$r!te s0n/e t1e or"0n!n/e #ere%) .ro10(0ts t1e o0% /o#.!n0es ,ro# o.er!t0n& t1e0r ($s0nesses 0n t1e P!n"!/!n !re!.

133

S#pra note .2.

In"ee", t1e or"0n!n/e e9.ress%) "e%0ne!te" 0n 0ts t0t%e !n" 0n Se/t0on 1 -1!t 0t .ert!0ne" to. T1ere,ore, t1e o0%

/o#.!n0esH /ontent0on 0s not s$..orte" () t1e te9t o, t1e or"0n!n/e. Res.on"ent s$//0n/t%) st!te" t1!t:
The oil companies are not forbidden to do business in the City of +anila. They may still 'ery ell do so, e/cept that their oil storage facilities are no longer allo ed in the !andacan area. Certainly, there are other places in the City of +anila here they can conduct this specific (ind of business. Ordinance No. .7-8 did not render the oil companies illegal. The assailed ordinance affects the oil companies business only in so far as the !andacan area is concerned.10;

T1e o0% /o#.!n0es !re not .ro10(0te" ,ro# "o0n& ($s0ness 0n ot1er !..ro.r0!te :ones 0n 2!n0%!. T1e 0t) o, 2!n0%! #ere%)

e9er/0se" 0ts .o-er to re&$%!te t1e ($s0nesses !n" 0n"$str0es 0n t1e :ones 0t est!(%0s1e":
"s to the contention that the po er to regulate does not include the po er to prohibit, it ill be seen that the ordinance copied abo'e does not prohibit the installation of motor engines ithin the municipality of Cabanatuan but only ithin the <one therein fi/ed. If the municipal council of Cabanatuan is authori<ed to establish said <one, it is also authori<ed to pro'ide hat (ind of engines may be installed therein. In banning the installation in said <one of all engines not e/cepted in the ordinance, the municipal council of Cabanatuan did no more than regulate their installation by means of <onification.133

T1e o0% /o#.!n0es !4er t1!t t1e or"0n!n/e 0s $n,!0r !n" o..ress04e (e/!$se t1e) 1!4e 0n4este" (0%%0ons o, .esos 0n t1e "e.ot.1*6 Its ,or/e" /%os$re -0%% res$%t 0n 1$&e %osses 0n
134 133 13/

Rollo, pp. 1212?1211. People v. r#3, 34 Phil. 24, 20 (1929). Rollo, p. 322.

0n/o#e !n" tre#en"o$s /osts 0n /onstr$/t0n& ne- ,!/0%0t0es. T1e0r /ontent0on 1!s no #er0t. In t1e e9er/0se o, .o%0/e .o-er, t1ere 0s ! %0#0t!t0on on or restr0/t0on o, .ro.ert) 0nterests to .ro#ote .$(%0/ -e%,!re -10/1 0n4o%4es no /o#.ens!(%e t!70n&. o#.ens!t0on 0s ne/ess!r) on%) -1en In

t1e st!teHs .o-er o, e#0nent "o#!0n 0s e9er/0se".

e#0nent "o#!0n, .ro.ert) 0s !..ro.r0!te" !n" !..%0e" to so#e .$(%0/ .$r.ose. Pro.ert) /on"e#ne" $n"er t1e

e9er/0se o, .o%0/e .o-er, on t1e ot1er 1!n", 0s no90o$s or 0nten"e" ,or ! no90o$s or ,or(0""en .$r.ose !n",

/onse=$ent%), 0s not /o#.ens!(%e.13. T1e restr0/t0on 0#.ose" to .rote/t %04es, .$(%0/ 1e!%t1 !n" s!,et) ,ro# "!n&er 0s not ! t!70n&. It 0s #ere%) t1e .ro10(0t0on or !(!te#ent o, ! no90o$s $se -10/1 0nter,eres -0t1 .!r!#o$nt r0&1ts o, t1e .$(%0/. Pro.ert) 1!s not on%) !n 0n"040"$!% ,$n/t0on, 0nso,!r !s 0t 1!s to .ro40"e ,or t1e nee"s o, t1e o-ner, ($t !%so ! so/0!% ,$n/t0on 0nso,!r !s 0t 1!s to .ro40"e ,or t1e nee"s o, t1e ot1er #e#(ers o, so/0et).130 T1e .r0n/0.%e 0s t10s:

!olice po er proceeds from the principle that e'ery holder of property, ho e'er absolute and un4ualified may be his title, holds it
13.

130

$ssociation of S/all -ando%ners in the Philippines" Inc. v. Secretary of $grarian Refor/ , *.&. 1o. .0.42, 14 @)ly 1909, 343 5C&" 1.3, 3.2. Chie% @)stice &eynato 5. P)no, !9he &i#ht to PropertyE Its Philosophical an 6e#al ;ases,, 9he Co)rt 5ystems @o)rnal, +ol. 12, no. 4, $ecem-er 2223, p. /.

under the implied liability that his use of it shall not be in#urious to the e4ual en#oyment of others ha'ing an e4ual right to the en#oyment of their property, nor in#urious to the right of the community. &ights of property, li(e all other social and con'entional rights, are sub#ect to reasonable limitations in their en#oyment as shall pre'ent them from being in#urious, and to such reasonable restraints and regulations established by la as the legislature, under the go'erning and controlling po er 'ested in them by the constitution, may thin( necessary and e/pedient.139

In t1e re&$%!t0on o, t1e $se o, t1e .ro.ert), no(o") e%se !/=$0res t1e $se or 0nterest t1ere0n, 1en/e t1ere 0s no /o#.ens!(%e t!70n&.142 In t10s /!se, t1e .ro.ert0es o, t1e o0% /o#.!n0es !n" ot1er ($s0nesses s0t$!te" 0n t1e !,,e/te" !re! re#!0n t1e0rs. On%) t1e0r $se 0s restr0/te" !%t1o$&1 t1e) /!n (e !..%0e" to ot1er .ro,0t!(%e $ses .er#0tte" 0n t1e /o##er/0!% :one.

ORDINANCE NO. 3456 IS NOT PARTIAL AND DISCRIMINATORY

T1e o0% /o#.!n0es t!7e t1e .os0t0on t1!t t1e or"0n!n/e 1!s "0s/r0#0n!te" !&!0nst !n" s0n&%e" o$t t1e P!n"!/!n Ter#0n!%s "es.0te t1e ,!/t t1!t t1e P!n"!/!n !re! 0s /on&este" -0t1 ($0%"0n&s !n" res0"en/es t1!t "o not /o#.%) -0t1 t1e N!t0on!% >$0%"0n&
139

o"e, '0re

o"e !n" ?e!%t1 !n"

142

(eleco//#nications and )roadcast $ttorneys of the Philippines" Inc. v. o/elec , 332 Phil. 133 (1990), $issentin# (pinion o% @. &omero, citin# Cooley, 9homas II onstit#tional -i/itations" 0th E ., p. 1224 (192.). 9his is %)rther rein%orce -y 5ection /, "rticle SII o% the Constit)tionE !9he )se o% property -ears a social %)nction xxxx, ,idipio 4arth'Savers' M#lti'P#rpose $ssociation v. 2o3#n, s#pra note 120 at /23.

S!n0t!t0on

o"e.1;1

T10s 0ss$e s1o$%" not "et!0n $s ,or %on&. An or"0n!n/e (!se" on re!son!(%e /%!ss0,0/!t0on "oes not 40o%!te t1e /onst0t$t0on!% &$!r!nt) o, t1e e=$!% .rote/t0on o, t1e %!-. 1;2 T1e re=$0re#ents ,or ! 4!%0" !n" re!son!(%e /%!ss0,0/!t0on !re: 516 0t #$st rest on s$(st!nt0!% "0st0n/t0onsG 526 0t #$st (e &er#!ne to t1e .$r.ose o, t1e %!-G 5*6 0t #$st not (e %0#0te" to e90st0n& /on"0t0ons on%) !n" 5;6 0t #$st !..%) e=$!%%) to !%% #e#(ers o, t1e s!#e /%!ss.1;* T1e %!- #!) tre!t !n" re&$%!te one /%!ss "0,,erent%) ,ro# !not1er /%!ss .ro40"e" t1ere !re re!% !n" s$(st!nt0!% "0,,eren/es to "0st0n&$0s1 one /%!ss ,ro# !not1er. 144 ?ere, t1ere 0s ! re!son!(%e /%!ss0,0/!t0on. Ee re0ter!te t1!t -1!t t1e or"0n!n/e see7s to .re4ent 0s ! /!t!stro.10/ "e4!st!t0on t1!t -0%% res$%t ,ro# ! terror0st !tt!/7. Un%07e t1e "e.ot, t1e s$rro$n"0n& /o##$n0t) 0s not ! 10&1-4!%$e terror0st t!r&et. An) "!#!&e /!$se" () ,0re or e9.%os0on o//$rr0n& 0n t1ose !re!s -o$%" (e not10n& /o#.!re" to t1e "!#!&e /!$se" ()
141 142

Rollo, p. 323. "rticle III, 5ection 1 statesE 5ection 1. 1o person shall -e epri+e o% li%e, li-erty or property witho)t )e process o% law, nor shall any person -e enie the eQ)al protection o% the laws. 2overn/ent Service Ins#rance Syste/ v. Montesclaros , *.&. 1o. 14/494, 14 @)ly 2224, 434 5C&" 441, 432. I ., citations omitte .

143

144

! ,0re or e9.%os0on 0n t1e "e.ot 0tse%,. A//or"0n&%), t1ere 0s ! s$(st!nt0!% "0st0n/t0on. T1e en!/t#ent o, t1e or"0n!n/e

-10/1 .ro40"es ,or t1e /ess!t0on o, t1e o.er!t0ons o, t1ese ter#0n!%s re#o4es t1e t1re!t t1e) .ose. T1ere,ore 0t 0s

&er#!ne to t1e .$r.ose o, t1e or"0n!n/e. T1e /%!ss0,0/!t0on 0s not %0#0te" to t1e /on"0t0ons e90st0n& -1en t1e or"0n!n/e -!s en!/te" ($t to ,$t$re /on"0t0ons !s -e%%. '0n!%%), t1e or"0n!n/e 0s !..%0/!(%e to !%% ($s0nesses !n" 0n"$str0es 0n t1e !re! 0t "e%0ne!te".

ORDINANCE NO. 3456 IS NOT INCONSISTENT 2IT( RA 6?@3 AND RA 3A6=

T1e o0% /o#.!n0es

!n" t1e DOE !ssert t1!t Or"0n!n/e

No. +023 0s $n/onst0t$t0on!% (e/!$se 0t /ontr!4enes RA 36*+ 5DOE A/t o, 1DD261;5 !n" RA +;3D 5Do-nstre!# O0% In"$str) Dere&$%!t0on L!- o, 1DD+6.1;6 T1e) !r&$e t1!t t1ro$&1 RA 36*+, t1e n!t0on!% %e&0s%!t$re "e/%!re" 0t ! .o%0/) o, t1e st!te @to ens$re ! /ont0n$o$s, !"e=$!te, !n" e/ono#0/ s$..%) o, ener&)A1;3 !n" /re!te" t1e DOE to 0#.%e#ent t10s .o%0/).
143

14/

14.

Entitle !"n "ct Creatin# the $epartment o% Ener#y, &ationali'in# the (r#ani'ation an F)nctions o% *o+ernment "#encies &elate to Ener#y, an %or (ther P)rposes, appro+e on $ecem-er 9, 1992. Entitle !"n "ct $ere#)latin# the $ownstream (il In )stry, an %or (ther P)rposes, appro+e on Fe-r)ary 12, 1990. 5ection 1.

T1$s, $n"er Se/t0on 5 I, DOE 0s e#.o-ere" to @est!(%0s1 !n" !"#0n0ster .ro&r!#s ,or t1e e9.%or!t0on, tr!ns.ort!t0on, #!r7et0n&, "0str0($t0on, $t0%0:!t0on, /onser4!t0on, sto/7.0%0n&, !n" stor!&e o, ener&) reso$r/es.A ons0"er0n& t1!t t1e

.etro%e$# .ro"$/ts /ont!0ne" 0n t1e P!n"!/!n Ter#0n!%s !re #!8or !n" /r0t0/!% ener&) reso$r/es, t1e) /on/%$"e t1!t t1e0r !"#0n0str!t0on, stor!&e, "0str0($t0on !n" tr!ns.ort !re o, n!t0on!% 0nterest !n" ,!%% $n"er DOEHs .r0#!r) !n" e9/%$s04e 8$r0s"0/t0on.1;+ T1e) ,$rt1er !ssert t1!t t1e ter#0n!%s !re ne/ess!r) ,or t1e "e%04er) o, 0##e"0!te !n" !"e=$!te s$..%) o, o0% to 0ts re/0.0ents 0n t1e #ost e/ono#0/!% -!). 1;D Lo/!% %e&0s%!t0on s$/1 !s Or"0n!n/e No. +023 5-10/1 e,,e/t04e%) /!%%s ,or t1e re#o4!% o, t1ese ter#0n!%s6 !%%e&e"%) ,r$str!tes t1e st!te .o%0/) o, ens$r0n& ! /ont0n$o$s, !"e=$!te, !n" e/ono#0/ s$..%) o, ener&) e9.resse" 0n RA 36*+, ! n!t0on!% %!-. 150 L07e-0se, t1e or"0n!n/e t1-!rts t1e "eter#0n!t0on o, t1e DOE t1!t t1e ter#0n!%sH o.er!t0ons s1o$%" (e #ere%) s/!%e" "o-n !n" not "0s/ont0n$e". 151 T1e) 0ns0st t1!t t10s s1o$%" not (e !%%o-e" /ons0"er0n& t1!t 0t 1!s ! n!t0on-0"e e/ono#0/
140 149 132 131

Rollo, p. 1443. I ., p. 1444. I ., p. 14.2. I ., p. 1402.

0#.!/t !n" !,,e/ts .$(%0/ 0nterest tr!ns/en"0n& t1e terr0tor0!% 8$r0s"0/t0on o, t1e 0t) o, 2!n0%!.152

A//or"0n& to t1e#, t1e DOEHs s$.er40s0on o4er t1e o0% 0n"$str) $n"er RA 36*+ -!s s$(se=$ent%) $n"ers/ore" () RA +;3D, .!rt0/$%!r%) 0n Se/t0on 3 t1ereo,:
SECTION 8. !romotion of Fair Trade !ractices. F The *epartment of Trade and Industry 1*TI3 and *OE shall ta(e all measures to promote fair trade and pre'ent carteli<ation, monopolies, combinations in restraint of trade, and any unfair competition in the Industry as defined in "rticle 1.2 of the &e'ised !enal Code, and "rticles 12. and 12: of &epublic "ct No. .-:0, other ise (no n as the >Intellectual !roperty &ights ,a ?. %he *O1 shall continue to encourage certain practices in the #ndustry which serve the pu.lic interest and are intended to achieve efficiency and cost reduction, ensure continuous supply of petroleum products, and enhance en'ironmental protection. These practices may include borro BandBloan agreements, rationali<ed depot and manufacturing operations, hospitality agreements, #oint tan(er and pipeline utili<ation, and #oint actions on oil spill control and fire pre'ention. 1Emphasis supplied3

Res.on"ent /o$nters t1!t DOEHs re&$%!tor) .o-er "oes not .re/%$"e LGUs ,ro# e9er/0s0n& t1e0r .o%0/e .o-er. 133 In"ee", or"0n!n/es s1o$%" not /ontr!4ene e90st0n& st!t$tes en!/te" () on&ress. T1e r!t0on!%e ,or t10s -!s

/%e!r%) e9.%!0ne" 0n #agta$as vs. Pryce Properties Corp., %nc.:15;

The rationale of the re4uirement that the ordinances should not
132 133 134

I ., p. .32. I ., p. 1223. S#pra note 113.

contra'ene a statute is ob'ious. +unicipal go'ernments are only agents of the national go'ernment. ,ocal councils e/ercise only delegated legislati'e po ers conferred on them by Congress as the national la ma(ing body. The delegate cannot be superior to the principal or e/ercise po ers higher than those of the latter. It is a heresy to suggest that the local go'ernment units can undo the acts of Congress, from hich they ha'e deri'ed their po er in the first place, and negate by mere ordinance the mandate of the statute. >+unicipal corporations o e their origin to, and deri'e their po ers and rights holly from the legislature. It breathes into them the breath of life, ithout hich they cannot e/ist. "s it creates, so it may destroy. "s it may destroy, it may abridge and control. 9nless there is some constitutional limitation on the right, the legislature might, by a single act, and if e can suppose it capable of so great a folly and so great a rong, s eep from e/istence all of the municipal corporations in the State, and the corporation could not pre'ent it. 5e (no of no limitation on the right so far as to the corporation themsel'es are concerned. They are, so to phrase it, the mere tenants at ill of the legislature.? This basic relationship bet een the national legislature and the local go'ernment units has not been enfeebled by the ne pro'isions in the Constitution strengthening the policy of local autonomy. 5ithout meaning to detract from that policy, e here confirm that Congress retains control of the local go'ernment units although in significantly reduced degree no than under our pre'ious Constitutions. The po er to create still includes the po er to destroy. The po er to grant still includes the po er to ithhold or recall. True, there are certain notable inno'ations in the Constitution, li(e the direct conferment on the local go'ernment units of the po er to ta/, hich cannot no be ithdra n by mere statute. )y and large, ho e'er, the national legislature is still the principal of the local go'ernment units, hich cannot defy its ill or modify or 'iolate it. 1DD

T1e =$est0on no- 0s -1et1er Or"0n!n/e No. +023 /ontr!4enes RA 36*+ !n" RA +;3D. It "oes not. Un"er Se/t0on 5 I o, RA 36*+, DOE -!s &04en t1e .o-er to @est!(%0s1 !n" !"#0n0ster .ro&r!#s ,or t1e e9.%or!t0on, tr!ns.ort!t0on, #!r7et0n&, "0str0($t0on, $t0%0:!t0on,

/onser4!t0on, sto/7.0%0n&, !n" stor!&e o, ener&) reso$r/es.A

133

I ., pp. 2.2?2.3, citation omitte .

On t1e ot1er 1!n", $n"er Se/t0on 3 o, RA +3;D, t1e DOE @s1!%% /ont0n$e to en/o$r!&e /ert!0n .r!/t0/es 0n t1e In"$str) -10/1 ser4e t1e .$(%0/ 0nterest !n" !re 0nten"e" to !/10e4e e,,0/0en/) !n" /ost re"$/t0on, ens$re /ont0n$o$s s$..%) o, .etro%e$# .ro"$/ts.A Not10n& 0n t1ese st!t$tes .ro10(0ts t1e 0t) o, 2!n0%! ,ro# en!/t0n& or"0n!n/es 0n t1e e9er/0se o, 0ts .o%0/e .o-er. T1e .r0n/0.%e o, %o/!% !$tono#) 0s ens1r0ne" 0n !n" :e!%o$s%) .rote/te" $n"er t1e onst0t$t0on. In Art0/%e II,

Se/t0on 25 t1ereo,, t1e .eo.%e e9.ress%) !"o.te" t1e ,o%%o-0n& .o%0/):

Section -D. The State shall ensure the autonomy of local go'ernments.

An ent0re !rt0/%e 5Art0/%e K6 o, t1e

onst0t$t0on 1!s (een

"e4ote" to &$!r!ntee0n& !n" .ro#ot0n& t1e !$tono#) o, LGUs. T1e LG -!s s.e/0!%%) .ro#$%&!te" () on&ress to

ens$re t1e !$tono#) o, %o/!% &o4ern#ents !s #!n"!te" () t1e onst0t$t0on:

Sec. -. *eclaration of !olicy. F 1a3 #t is here.y declared the policy of the ,tate that the territorial and political su.divisions of the

,tate shall enjoy genuine and meaningful local autonomy to ena.le them to attain their fullest development as self&reliant communities and ma-e them more effective partners in the attainment of national goals. To ard this end, the State shall pro'ide for a more responsi'e and accountable local go'ernment structure instituted through a system of decentrali<ation hereby local go'ernment units shall be gi'en more po ers, authority, responsibilities, and resources. The process of decentrali<ation shall proceed from the National Eo'ernment to the local go'ernment units. 1Emphasis supplied3

Ee "o not see 1o- t1e %!-s re%0e" $.on () t1e o0% /o#.!n0es !n" DOE str0..e" t1e 0t) o, 2!n0%! o, 0ts .o-er

to en!/t or"0n!n/es 0n t1e e9er/0se o, 0ts .o%0/e .o-er !n" to re/%!ss0,) t1e %!n" $ses -0t10n 0ts 8$r0s"0/t0on. To &$0"e $s, -e s1!%% #!7e ! (r0e, s$r4e) o, o$r "e/0s0ons -1ere t1e .o%0/e .o-er #e!s$re o, t1e LGU /%!s1e" -0t1 n!t0on!% %!-s. In &an v. Pere'a,156 t1e o$rt r$%e" t1!t Or"0n!n/e No. 3 e($ !%%o-0n&

en!/te" () t1e #$n0/0.!%0t) o, D!!n(!nt!)!n,

t1e o.er!t0on o, t1ree /o/7.0ts -!s 0n4!%0" ,or 40o%!t0n& PD ;;D 5or t1e o/7,0&1t0n& L!- o, 1D3;6 -10/1 .er#0tte" on%)

one /o/7.0t .er #$n0/0.!%0t). In Batangas C!&(, %nc. v. Court of !ppeals ,153 t1e Sangguniang Panlungsod o, >!t!n&!s 0t) en!/te"

Reso%$t0on No. 210 &r!nt0n& >!t!n&!s

ATV, In/. ! .er#0t to 0t).

o.er!te ! /!(%e te%e40s0on 5 ATV6 s)ste# 0n >!t!n&!s

13/ 13.

*.&. 1o. 149.43, 10 Fe-r)ary 2223, 432 5C&" 33. *.&. 1o. 130012, 29 5eptem-er 2224, 439 5C&" 32/.

T1e

o$rt 1e%" t1!t t1e LGU "0" not 1!4e t1e !$t1or0t) to ATV s)ste# (e/!$se 0t -!s o##0ss0on 5NT 6 t1!t ATV

&r!nt ,r!n/10ses to o.er!te !

t1e N!t0on!% Te%e/o##$n0/!t0ons

1!" t1e .o-er $n"er EO Nos. 205 !n" ;*6 to re&$%!te o.er!t0ons. EO 205 #!n"!te" t1e NT o, !$t1or0t) to NT

to &r!nt /ert0,0/!tes

ATV o.er!tors -10%e EO ;*6 4este" on t1e ATV 0n"$str).

t1e .o-er to re&$%!te !n" s$.er40se t1e

In )ina, Jr. v. Pa'o,15+ -e 1e%" t1!t *apasiyahan Bilang +,-, &aon .//+ o, t1e Sangguniang Panlala0igan o, L!&$n! /o$%" not (e $se" !s 8$st0,0/!t0on to .ro10(0t %otto 0n t1e #$n0/0.!%0t) o, S!n Pe"ro, L!&$n! (e/!$se %otto -!s "$%) !$t1or0:e" () RA 116D, !s !#en"e" () >P ;2. &r!nte" ! ,r!n/10se to t1e P10%0..0ne O,,0/e !n" !%%o-e" 0t to o.er!te %otter0es. In #agta$as v. Pryce Properties Corp., %nc., 15D t1e Sangguniang Panlungsod o, !&!)!n "e Oro 0t) .!sse" T10s %!-

1!r0t) S-ee.st!7es

Or"0n!n/e Nos. **5* !n" **35-D* .ro10(0t0n& t1e o.er!t0on o, /!s0nos 0n t1e /0t). Ee r$%e" t1!t t1ese or"0n!n/es -ere 4o0" ,or /ontr!4en0n& PD 1+6D or t1e /1!rter o, t1e P10%0..0ne A#$se#ents !n" G!#0n&
130 139

or.or!t0on -10/1 1!"

41/ Phil. 430 (2221). S#pra note 113.

t1e .o-er to o.er!te /!s0nos. T1e /o##on "o#0n!tor o, !%% o, t1ese /!ses 0s t1!t t1e n!t0on!% %!-s -ere /%e!r%) !n" e9.ress%) 0n /on,%0/t -0t1 t1e or"0n!n/esFreso%$t0ons o, t1e LGUs. T1e 0n/ons0sten/0es

-ere so .!tent t1!t t1ere -!s no roo# ,or "o$(t. T10s 0s not t1e /!se 1ere. T1e %!-s /0te" #ere%) &!4e DOE &ener!% .o-ers to @est!(%0s1 !n" !"#0n0ster .ro&r!#s ,or t1e e9.%or!t0on, tr!ns.ort!t0on, #!r7et0n&, "0str0($t0on, $t0%0:!t0on,

/onser4!t0on, sto/7.0%0n&, !n" stor!&e o, ener&) reso$r/esA !n" @to en/o$r!&e /ert!0n .r!/t0/es 0n t1e Bo0%C 0n"$str) -10/1 ser4e t1e .$(%0/ 0nterest !n" !re 0nten"e" to !/10e4e e,,0/0en/) !n" /ost re"$/t0on, ens$re /ont0n$o$s s$..%) o, .etro%e$# .ro"$/ts.A T1ese .o-ers /!n (e e9er/0se" -0t1o$t e#!s/$%!t0n& t1e LGUs o, t1e .o-ers &r!nte" t1e#. E1en t1ese !#(0&$o$s .o-ers !re .0tte" !&!0nst t1e $ne=$04o/!% .o-er o, t1e LGU to en!/t .o%0/e .o-er !n" :on0n& or"0n!n/es ,or t1e &ener!% -e%,!re o, 0ts /onst0t$ents, 0t 0s not "0,,0/$%t to r$%e 0n ,!4or o, t1e %!tter. ons0"er0n&

t1!t t1e .o-ers o, t1e DOE re&!r"0n& t1e P!n"!/!n Ter#0n!%s !re not /!te&or0/!%, t1e "o$(t #$st (e reso%4e" 0n

,!4or o, t1e

0t) o, 2!n0%!:

SECTION D. &ules of Interpretation. F In the interpretation of the pro'isions of this Code, the follo ing rules shall applyG 1a3 "ny pro'ision on a po er of a local go'ernment unit shall be liberally interpreted in its fa'or, and in case of doubt, any 4uestion thereon shall be resol'ed in fa'or of de'olution of po ers and of the lo er local go'ernment unit. "ny fair and reasonable doubt as to the e/istence of the po er shall be interpreted in fa'or of the local go'ernment unit concernedC /// /// ///

(g) IThe general elfare pro'isions in this Code shall be liberally

interpreted to gi'e more po ers to local go'ernment units in accelerating economic de'elopment and upgrading the 4uality of life for the people in the community ////

T1e %e!st -e /!n "o to ens$re &en$0ne !n" #e!n0n&,$% %o/!% !$tono#) 0s not to ,or/e !n 0nter.ret!t0on t1!t ne&!tes .o-ers e9.%0/0t%) &r!nte" to %o/!% &o4ern#ents. To r$%e !&!0nst t1e .o-er o, LGUs to re/%!ss0,) !re!s -0t10n t1e0r 8$r0s"0/t0on -0%% s$(4ert t1e .r0n/0.%e o, %o/!% !$tono#) &$!r!ntee" () t1e onst0t$t0on. 1/2 As -e 1!4e note" 0n

e!r%0er "e/0s0ons, o$r n!t0on!% o,,0/0!%s s1o$%" not on%) /o#.%) -0t1 t1e /onst0t$t0on!% .ro40s0ons on %o/!% !$tono#) ($t s1o$%" !%so !..re/0!te t1e s.0r0t !n" %0(ert) $.on -10/1 t1ese .ro40s0ons !re (!se".1/1

1/2

1/1

-eynes v. o//ission on $#dit, s#pra note 122 at 199, citin# 5ection 23, "rticle II an 5ection 2, "rticle S o% the Constit)tion. Province of )atangas v. Ro/#lo, *.&. 1o. 132..4, 2. =ay 2224, 429 5C&" .3/, ..2, citin# San 1#an v. ivil Service o//ission, *.&. 1o. 92299, 19 "pril 1991, 19/ 5C&" /9.

T(E DOE CANNOT E>ERCISE T(E PO2ER OF CONTROL OVER LGUS

Anot1er

re!son

t1!t

#0%0t!tes

!&!0nst

t1e

DOEHs

!ssert0ons 0s t1!t Se/t0on ; o, Art0/%e K o, t1e

onst0t$t0on

/on,0nes t1e Pres0"entHs .o-er o4er LGUs to one o, &ener!% s$.er40s0on:

SECTION ;. The !resident of the !hilippines shall e/ercise general super'ision o'er local go'ernments. J///

onse=$ent%), t1e

10e, E9e/$t04e or 10s or 1er !%ter e&os, ontro%

/!nnot e9er/0se t1e .o-er o, /ontro% o4er t1e#. 1/2 !n" s$.er40s0on !re "0st0n&$0s1e" !s ,o%%o-s:

$Super'ision% means o'erseeing or the po er or authority of an officer to see that subordinate officers perform their duties. If the latter fail or neglect to fulfill them, the former may ta(e such action or step as prescribed by la to ma(e them perform their duties. Control, on the other hand, means the po er of an officer to alter or modify or nullify or set aside hat a subordinate officer ha$s% done in the performance of his duties and to substitute the #udgment of the former for that of the latter.1/3

S$.er40sor) .o-er, -1en /ontr!ste" -0t1 /ontro%, 0s t1e .o-er o, #ere o4ers0&1t o4er !n 0n,er0or (o")G 0t "oes not 0n/%$"e !n) restr!0n0n& !$t1or0t) o4er s$/1 (o"). 1/4 It "oes
1/2

1/3 1/4

.ational -iga ng /ga )arangay v. Paredes, *.&. 1os. 132..3 an 131939, 2. 5eptem-er 2224, 439 5C&" 132. Mondano v. Silvosa, 9. Phil. 143, 14.?140 (1933). (a#le v. Santos, *.&. 1o. 9233/, 12 ")#)st 1991, 222 5C&" 312, 322, citin# He*ron v. Reyes, 124 Phil. 1.3 (1930).

not

!%%o-

t1e

s$.er40sor

to

!nn$%

t1e

!/ts

o,

t1e

s$(or"0n!te.1/3

?ere, -1!t t1e DOE see7s to "o 0s to set

!s0"e !n or"0n!n/e en!/te" () %o/!% o,,0/0!%s, ! .o-er t1!t not e4en 0ts .r0n/0.!%, t1e Pres0"ent, 1!s. T10s 0s (e/!$se:
9nder our present system of go'ernment, e/ecuti'e po er is 'ested in the !resident. The members of the Cabinet and other e/ecuti'e officials are merely alter egos. "s such, they are sub#ect to the po er of control of the !resident, at hose ill and behest they can be remo'ed from officeC or their actions and decisions changed, suspended or re'ersed. In contrast, the heads of political subdi'isions are elected by the people. Their so'ereign po ers emanate from the electorate, to hom they are directly accountable. )y constitutional fiat, they are sub#ect to the !residentAs super'ision only, not control, so long as their acts are e/ercised ithin the sphere of their legitimate po ers. )y the same to(en, the !resident may not ithhold or alter any authority or po er gi'en them by the Constitution and the la .1//

T1$s, t1e Pres0"ent !n" 10s or 1er !%ter e&os, t1e "e.!rt#ent 1e!"s, /!nnot 0nter,ere -0t1 t1e !/t040t0es o, %o/!% &o4ern#ents, so %on& !s t1e) !/t -0t10n t1e s/o.e o, t1e0r !$t1or0t). o-n "0s/ret0on A//or"0n&%), t1e DOE /!nnot s$(st0t$te 0ts ,or t1e "0s/ret0on e9er/0se" () t1e

sanggunian o, t1e

0t) o, 2!n0%!. In %o/!% !,,!0rs, t1e -0s"o#

o, %o/!% o,,0/0!%s #$st .re4!0% !s %on& !s t1e) !re !/t0n& -0t10n t1e .!r!#eters o, t1e onst0t$t0on !n" t1e %!-. 1/.

1/3

1//

1/.

M#nicipality of Malolos v. -i*angang Malolos" Inc. , *.&. 1o. 6?.0392, 11 ")#)st 1900, 1/4 5C&" 292, 290 citin# Hee $c#sar v. I$ , *.&. 1os. 6?.29/9?.2, 1. $ecem-er 190/, 14/ 5C&" 294, 322. Pi/entel" 1r. v. $g#irre, *.&. 1o. 132900, 19 @)ly 2222, 33/ 5C&" 221, 213, citin# 5ec. 1, "rt. BII, 190. Constit)tion an @oaQ)in *. ;ernas, 5@, (he >?8@ onstit#tion of the Rep#*lic of the Philippines: $ o//entary, 199/ e ., p. .39. See ,adole v. o//ission on ") it, *.&. 1o. 123332, 3 $ecem-er 2222, 393 5C&" 2/2, 2.1.

ORDINANCE NO. 3456 IS NOT INVALID FOR FAILURE TO COMPLY 2IT( RA 6=5A AND EO 65

T1e o0% /o#.!n0es !r&$e t1!t :on0n& or"0n!n/es o, LGUs !re re=$0re" to (e s$(#0tte" to t1e 2etro.o%0t!n 2!n0%! De4e%o.#ent A$t1or0t) 522DA6 ,or re40e- !n" 0, ,o$n" to (e 0n /o#.%0!n/e -0t1 0ts #etro.o%0t!n .1)s0/!% ,r!#e-or7 .%!n !n" re&$%!t0ons, 0t s1!%% en"orse t1e s!#e to t1e ?o$s0n& !n" L!n" Use Re&$%!tor) >o!r" 5?LUR>6. T1e0r (!s0s 0s Se/t0on * 5e6 o, RA 3D2;:1/0

SECTION 0. Scope of ++*" Ser'ices. F 2etro&wide services under the jurisdiction of the 22*+ are those ser'ices hich ha'e metroB ide impact and transcend local political boundaries or entail huge e/penditures such that it ould not be 'iable for said ser'ices to be pro'ided by the indi'idual $,E9s% comprising +etropolitan +anila. These ser'ices shall includeG /// /// ///

(g) 3r.an renewal, 4oning, and land use planning , and

shelter ser'ices hich include the formulation, adoption and implementation of policies, standards, rules and regulations, programs and pro#ects to rationali<e and optimi<e urban land use and pro'ide direction to urban gro th and e/pansion, the rehabilitation and de'elopment of slum and blighted areas, the de'elopment of shelter and housing facilities and the pro'ision of necessary social ser'ices thereof. 1Emphasis supplied3

Re,eren/e

-!s

!%so

#!"e

to

Se/t0on

15

o,

0ts

0#.%e#ent0n& r$%es:
1/0

Entitle !"n "ct Creatin# the 8==$":, $e%inin# its Powers an F)nctions, Pro+i in# F)n s there%or an %or (ther P)rposes.,

Section 1D. ,in(ages ith 69*CC, 6,9&), N6", ,E9s and Other National Eo'ernment "gencies Concerned on 9rban &ene al, Koning and ,and 9se !lanning and Shelter Ser'ices. 5ithin the conte/t of the National 6ousing and 9rban *e'elopment Frame or(, and pursuant to the national standards, guidelines and regulations formulated by the 6ousing and ,and 9se &egulatory )oard $6,9&)% on land use planning and <oning, the $++*"% shall prepare a metropolitan physical frame or( plan and regulations hich shall complement and translate the socioBeconomic de'elopment plan for +etro +anila into physical or spatial terms, and pro'ide the basis for the preparation, re'ie , integration and implementation of local land use plans and <oning, ordinance of cities and municipalities in the area. Said frame or( plan and regulations shall contain, among others, planning and <oning policies and procedures that shall be obser'ed by local go'ernment units in the preparation of their o n plans and ordinances pursuant to Section ;;8 and ;D. of &" 8127, as ell as the identification of sites and pro#ects that are considered to be of national or metropolitan significance. $ities and municipalities shall prepare their respective land use plans and 4oning ordinances and su.mit the same for review and integration .y the [22*+] and indorsement to 56378 in accordance with 1/ecutive Order No. "! and other pertinent laws. In the preparation of a +etropolitan +anila physical frame or( plan and regulations, the $++*"% shall coordinate ith the 6ousing and 9rban *e'elopment Coordinating Council, 6,9&), the National 6ousing "uthority, Intramuros "dministration, and all other agencies of the national go'ernment hich are concerned ith land use and <oning, urban rene al and shelter ser'ices. 1Emphasis supplied3

T1e) !%so /%!0# t1!t EO 32 1/9 .ro40"es t1!t :on0n& or"0n!n/es o, /0t0es !n" #$n0/0.!%0t0es o, 2etro 2!n0%! !re s$(8e/t to re40e- () t1e ?LUR> to ens$re /o#.%0!n/e -0t1 n!t0on!% st!n"!r"s !n" &$0"e%0nes. .!r!&r!.1s I, 5e6, 5,6 !n" 5&6:
1/9

T1e) /0te Se/t0on 1,

Entitle !Pro+i in# %or the Preparation an Implementation o% the Comprehensi+e 6an 7se Plans o% 6ocal *o+ernment 7nits P)rs)ant to the 6ocal *o+ernment Co e o% 1991 an (ther Pertinent 6aws, iss)e on =arch 23, 1993.

SECTION 1. !lan formulation or updating. F /// /// ///

(g) Cities and municipalities of +etropolitan +anila shall

continue to formulate or update their respecti'e comprehensive land use plans , in accordance ith the land use planning and <oning standards and guidelines prescribed by the 6,9&) pursuant to EO 0:-, S. of 1::7, and other pertinent national policies. J// /// ///

1e3 !ursuant to ,OI 8-:, S. of 1:8., EO 2;., S. of 1:.1, and &" 8-8:, the comprehensive land use plans of pro'inces, highly urbani<ed cities and independent component cities shall be re'ie ed and ratified by the 6,9&) to ensure compliance ith national standards and guidelines. 1f3 !ursuant to EO 0:-, S. of 1:::, the comprehensive land use plans of cities and municipalities of +etropolitan +anila shall be re'ie ed by the 6,9&) to ensure compliance ith national standards and guidelines.

(g) Said re'ie shall be completed ithin three 103 months

upon receipt thereof other ise, the same shall be deemed consistent ith la , and, therefore, 'alid. 1Emphasis supplied3

T1e) !r&$e t1!t (e/!$se Or"0n!n/e No. +023 "0" not &o t1ro$&1 t10s re40e- .ro/ess, 0t 0s 0n4!%0". T1e !r&$#ent 0s ,%!-e". RA 3D;2 "oes not &04e 22DA t1e !$t1or0t) to re40e%!n" $se .%!ns !n" :on0n& or"0n!n/es o, /0t0es !n"

#$n0/0.!%0t0es. T10s -!s on%) ,o$n" 0n 0ts 0#.%e#ent0n& r$%es -10/1 #!"e ! re,eren/e to EO 32. EO 32 e9.ress%) re,ers to

/o#.re1ens04e %!n" $se .%!ns 5 LUPs6 on%). Or"0n!n/e No. +023 0s !"#0tte"%) not ! LUP nor 0nten"e" to (e one.

Inste!", 0t 0s ! 4er) s.e/0,0/ or"0n!n/e -10/1 re/%!ss0,0e" t1e %!n" $se o, ! "e,0ne" !re! 0n or"er to .re4ent t1e #!ss04e e,,e/ts o, ! .oss0(%e terror0st !tt!/7. It 0s Or"0n!n/e No.

+11D -10/1 -!s e9.%0/0t%) ,or#$%!te" !s t1e @2!n0%! B LUPC !n" Zon0n& Or"0n!n/e o, 2006.A LUPs !re t1e or"0n!n/es

-10/1 s1o$%" (e s$(#0tte" to t1e 22DA ,or 0nte&r!t0on 0n 0ts #etro.o%0t!n .1)s0/!% ,r!#e-or7 .%!n !n" !..ro4e" () t1e ?LUR> to ens$re t1!t t1e) /on,or# -0t1 n!t0on!% &$0"e%0nes !n" .o%0/0es. 2oreo4er, e4en !ss$#0n& t1!t t1e 22DA re40e- !n" ?LUR> r!t0,0/!t0on !re ne/ess!r), t1e o0% /o#.!n0es "0" not .resent !n) e40"en/e to s1o- t1!t t1ese -ere not /o#.%0e" -0t1. In !//or"!n/e -0t1 t1e .res$#.t0on o, 4!%0"0t) 0n ,!4or o, !n or"0n!n/e, 0ts /onst0t$t0on!%0t) or %e&!%0t) s1o$%" (e $.1e%" 0n t1e !(sen/e o, .roo, s1o-0n& t1!t t1e .ro/e"$re .res/r0(e" () %!- -!s not o(ser4e". T1e ($r"en o, .roo, 0s on t1e o0% /o#.!n0es -10/1 !%re!") 1!" not0/e t1!t t10s o$rt -!s 0n/%0ne" to "0s.ose o, !%% t1e 0ss$es 0n t10s /!se. Let !s0"e ,ro# t1e0r (!re !ssert0on, t1e) "0" not .resent !n) /ert0,0/!t0on ,ro# t1e 22DA or t1e ?LUR> nor "0" t1e)

!..en" t1ese to t1e0r .%e!"0n&s.

%e!r%), t1e) ,!0%e" to re($t

t1e .res$#.t0on o, 4!%0"0t) o, Or"0n!n/e No. +023. 1.2

CONCLUSION

Essent0!%%), t1e o0% /o#.!n0es !re ,0&1t0n& ,or t1e0r r0&1t to .ro.ert). T1e) !%%e&e t1!t t1e) st!n" to %ose (0%%0ons o, .esos 0, ,or/e" to re%o/!te. ?o-e4er, (!se" on t1e 10er!r/1) o, /onst0t$t0on!%%) .rote/te" r0&1ts, t1e r0&1t to %0,e en8o)s .re/e"en/e o4er t1e r0&1t to .ro.ert). 131 T1e re!son 0s o(40o$s: %0,e 0s 0rre.%!/e!(%e, .ro.ert) 0s not. E1en t1e st!te or LGUHs e9er/0se o, .o%0/e .o-er /%!s1es -0t1 ! ,e0n"040"$!%sH r0&1t to .ro.ert), t1e ,or#er s1o$%" .re4!0%. 132 >ot1 %!- !n" 8$r0s.r$"en/e s$..ort t1e /onst0t$t0on!%0t) !n" 4!%0"0t) o, Or"0n!n/e No. +023. E0t1o$t ! "o$(t, t1ere !re no 0#.e"0#ents to 0ts en,or/e#ent !n" 0#.%e#ent!t0on. An) "e%!) 0s $n,!0r to t1e 0n1!(0t!nts o, t1e 0t) o, 2!n0%!

!n" 0ts %e!"ers -1o 1!4e /!te&or0/!%%) e9.resse" t1e0r "es0re ,or t1e re%o/!t0on o, t1e ter#0n!%s. T1e0r .o-er to /1!rt !n"

1.2

1.1 1.2

Fig#erres v. o#rt of $ppeals, 3/4 Phil. /03, /92?/93 (1999)> Reyes v. o#rt of $ppeals, 3.0 Phil. 232, 239 (1999). Secretary of 1#stice v. Hon. -antion, 3.9 Phil. 1/3, 221 (2222). 0da. de 2en#ino v. o#rt of $grarian Relations , 1o. 6?23233, 2/ Fe-r)ary 19/0, 22 5C&" .92, .9..

/ontro% t1e0r o-n "est0n) !n" .reser4e t1e0r %04es !n" s!,et) s1o$%" not (e /$rt!0%e" () t1e 0nter4enorsH -!rn0n&s o, "oo#s"!) s/en!r0os !n" t1re!ts o, e/ono#0/ "0sor"er 0, t1e or"0n!n/e 0s en,or/e". Se/on"!r) to t1e %e&!% re!sons s$..ort0n& t1e

0##e"0!te 0#.%e#ent!t0on o, Or"0n!n/e No. +023 !re t1e .o%0/) /ons0"er!t0ons -10/1 "ro4e 2!n0%!Hs &o4ern#ent to /o#e $. -0t1 s$/1 ! #e!s$re:
... $The% oil companies still ere not able to allay the apprehensions of the city regarding the security threat in the area in general. No specific action plan or security measures ere presented that ould pre'ent a possible largeBscale terrorist or malicious attac( especially an attac( aimed at +alacaOang. The measures that ere installed ere more directed to ards their internal security and did not include the pre'ention of an e/ternal attac( e'en on a bilateral le'el of cooperation bet een these companies and the police and military. J// /// ///

It is not enough for the city go'ernment to be told by these oil companies that they ha'e the most sophisticated fireBfighting e4uipments and ha'e in'ested millions of pesos for these e4uipments. The city go'ernment ants to be assured that its residents are safe at any time from these installations, and in the three public hearings and in their position papers, not one statement has been said that indeed the absolute safety of the residents from the ha<ards posed by these installations is assured.180

Ee !re !%so .$tt0n& !n en" to t1e o0% /o#.!n0esH "eter#0n!t0on to .ro%on& t1e0r st!) 0n P!n"!/!n "es.0te t1e

1.3

&eport o% Committee on Co)sin#, &esettlement an 7r-an $e+elopment o% the City o% =anilaDs Sangg#niang Panl#ngsod recommen in# the appro+al o% (r inance 1o. 022.> rollo, pp. 903, 909.

o(8e/t0ons o, 2!n0%!Hs res0"ents. As e!r%) !s O/to(er 2001, t1e o0% /o#.!n0es s0&ne" ! 2OA -0t1 t1e DOE o(%0&0n& t1e#se%4es to:
... underta(e a comprehensi'e and comparati'e study ... $ hich% shall include the preparation of a +aster !lan, hose aim is to determine the scope and timing of the feasible location of the !andacan oil terminals and all associated facilities and infrastructure including go'ernment support essential for the relocation such as the necessary transportation infrastructure, land and right of ay ac4uisition, resettlement of displaced residents and en'ironmental and social acceptability hich shall be based on mutual benefit of the !arties and the public. 1.4

No- t1!t t1e) !re (e0n& /o#.e%%e" to "0s/ont0n$e t1e0r o.er!t0ons 0n t1e P!n"!/!n Ter#0n!%s, t1e) /!nnot ,e0&n $nre!"0ness /ons0"er0n& t1!t t1e) 1!" )e!rs to .re.!re ,or t10s e4ent$!%0t). <$st t1e s!#e, t10s o$rt 0s not !(o$t to .ro4o7e ! /r0s0s

() or"er0n& t1e 0##e"0!te re%o/!t0on o, t1e P!n"!/!n Ter#0n!%s o$t o, 0ts .resent s0te. T1e en,or/e#ent o, ! "e/0s0on o, t10s o$rt, s.e/0!%%) one -0t1 ,!r-re!/10n&

/onse=$en/es, s1o$%" !%-!)s (e -0t10n t1e (o$n"s o, re!son, 0n !//or"!n/e -0t1 ! /o#.re1ens04e !n" -e%%/oor"0n!te" .%!n, !n" -0t10n ! t0#e-,r!#e t1!t /o#.%0es -0t1 t1e %etter !n" s.0r0t o, o$r reso%$t0on. To t10s en", t1e o0%

/o#.!n0es 1!4e no /1o0/e ($t to o(e) t1e %!-.

1.4

E+en i% this =(7 was mo i%ie -y the @)ne 2/, 2222 =("> i ., pp. /21?/22.

A 2ARNING TO PETITIONERS: COUNSEL

Ee "r!- t1e !ttent0on o, t1e .!rt0es to ! #!tter o, &r!4e /on/ern to t1e %e&!% .ro,ess0on. Pet0t0oners !n" t1e0r /o$nse%, Att). S!#son A%/!nt!r!, s$(#0tte" ! ,o$r-.!&e #e#or!n"$# t1!t /%e!r%) /ont!0ne" e0t1er s$(st!n/e nor rese!r/1. It 0s !(so%$te%) 0ns$%t0n& to t10s o$rt. Ee 1!4e !%-!)s ten"e" to-!r"s 8$"0/0!% %en0en/), te#.er!n/e !n" /o#.!ss0on to t1ose -1o s$,,er ,ro# ! -ron& .er/e.t0on o, -1!t t1e #!8est) o, t1e %!- #e!ns. >$t ,or ! #e#(er o, t1e (!r, !n o,,0/er o, t1e /o$rt, to ,0%e 0n t10s o$rt ! #e#or!n"$# o, s$/1 $n!//e.t!(%e =$!%0t) 0s !n ent0re%) "0,,erent #!tter. It 0s 0n"0/!t04e %ess o, ! .erson!% s1ort/o#0n& or /onte#.t o, t10s o$rt !n" #ore o, ! %!-)erHs sorr) "es/ent

,ro# ! 10&1 sense o, "$t) !n" res.ons0(0%0t). As ! #e#(er o, t1e (!r !n" !s !n o,,0/er o, t1e /o$rt, ! %!-)er o$&1t to (e 7een%) !-!re t1!t t1e /10e, s!,e&$!r" o, t1e (o") .o%0t0/ 0s res.e/t ,or t1e %!- !n" 0ts #!&0str!tes.

T1ere 0s not10n& #ore e,,e/t04e t1!n t1e -r0tten -or" () -10/1 /o$nse% /!n .ers$!"e t10s o$rt o, t1e

r0&1teo$sness o, 10s /!$se. 'or 0, tr$t1 -ere se%,-e40"ent, ! #e#or!n"$# s$.er,%$o$s. T1e 0n!(0%0t) o, /o$nse% to .re.!re ! #e#or!n"$# -ort1) o, t10s o$rtHs /ons0"er!t0on 0s !n e$emplo malo to -o$%" (e /o#.%ete%) $nne/ess!r) !n"

t1e %e&!% .ro,ess0on !s 0t (etr!)s no &en$0ne 0nterest 0n t1e /!$se 1e /%!0#s to es.o$se. Or "0" /o$nse% t10n7 1e /!n

e!rn 10s #o#ent o, &%or) -0t1o$t t1e 1!r" -or7 !n" "e"0/!t0on /!%%e" ,or () 10s .et0t0onM
A FINAL 2ORD

On Ee"nes"!), <!n$!r) 2*, 200+, ! "e,e/t04e t!n7er /ont!0n0n& 2,000 %0ters o, &!so%0ne !n" 1;,000 %0ters o, "0ese% e9.%o"e" 0n t1e #0""%e o, t1e street ! s1ort "0st!n/e ,ro# t1e e90t &!te o, t1e P!n"!/!n Ter#0n!%s, /!$s0n& "e!t1, e9tens04e "!#!&e !n" ! ,r0&1ten0n& /on,%!&r!t0on 0n t1e 40/0n0t) o, t1e 0n/0"ent. Nee" -e s!) !nt10n& !(o$t -1!t -0%% 1!..en 0, 0t 0s t1e est0#!te" 162 to 211 #0%%0on %0ters 135 o, .etro%e$# .ro"$/ts 0n t1e ter#0n!% /o#.%e9 -10/1 (%o- $.M
1.3

I ., p. 1129. See also %ootnote 33.

2(EREFORE, t1e #ot0ons ,or %e!4e to 0nter4ene o, 1e4ron P10%0..0nes In/., Petron S1e%% Petro%e$# or.or!t0on !n" P0%0.0n!s

or.or!t0on, !n" t1e Re.$(%0/ o, t1e

P10%0..0nes, re.resente" () t1e De.!rt#ent o, Ener&), !re 1ere() GRANTED. T1e0r res.e/t04e #ot0ons ,or

re/ons0"er!t0on !re 1ere() DENIED.

T1e Re&0on!% Tr0!%

o$rt, 2!n0%!, >r!n/1 *D 0s ORDERED to DISMISS t1e /onso%0"!te" /!ses o, !se No. 0*-106*+0. Ee re0ter!te o$r or"er to res.on"ent 2!)or o, t1e o, 2!n0%! to en,or/e Or"0n!n/e No. +023. 0t) 040% !se No. 0*-106*33 !n" 040%

In /oor"0n!t0on

-0t1 t1e !..ro.r0!te !&en/0es !n" ot1er .!rt0es 0n4o%4e", res.on"ent 2!)or 0s 1ere() or"ere" to o4ersee t1e

re%o/!t0on !n" tr!ns,er o, t1e P!n"!/!n Ter#0n!%s o$t o, 0ts .resent s0te. To ens$re t1e or"er%) tr!ns,er, #o4e#ent !n"

re%o/!t0on o, !ssets !n" .ersonne%, t1e 0nter4enors P10%0..0nes In/., Petron Petro%e$#

1e4ron

or.or!t0on !n" P0%0.0n!s S1e%%

or.or!t0on s1!%%, -0t10n ! non-e9ten"0(%e .er0o" o$rt o,

o, n0net) 5D06 "!)s, s$(#0t to t1e Re&0on!% Tr0!%

2!n0%!, >r!n/1 *D, t1e /o#.re1ens04e .%!n !n" re%o/!t0on

s/1e"$%e -10/1 1!4e !%%e&e"%) (een .re.!re". T1e .res0"0n& 8$"&e o, 2!n0%! RT , >r!n/1 *D -0%% #on0tor t1e str0/t en,or/e#ent o, t10s reso%$t0on. Att). S!#son A%/!nt!r! 0s 1ere() or"ere" to e9.%!0n -0t10n ,04e 556 "!)s ,ro# not0/e -1) 1e s1o$%" not (e "0s/0.%0ne" ,or 10s re,$s!%, or 0n!(0%0t), to ,0%e ! #e#or!n"$# -ort1) o, t1e /ons0"er!t0on o, t10s o$rt.

Tre(%e /osts !&!0nst .et0t0onersH /o$nse%, Att). S!#son A%/!nt!r!.

SO ORDERED.

5# .

RENATO C. CORONA Asso/0!te <$st0/e EE ON UR:

S&".

REYNATO S. PUNO 10e, <$st0/e 1!0r.erson

S&". S&".

ANGELINA SANDOVAL%GUTIERRE) Asso/0!te <$st0/e

ADOLFO S. A)CUNA Asso/0!te <$st0/e

TERESITA J. LEONARDO%DE CASTRO Asso/0!te <$st0/e

S&".

CERTIFICATION P$rs$!nt to Se/t0on 1*, Art0/%e VIII o, t1e onst0t$t0on, I /ert0,) t1!t t1e /on/%$s0ons 0n t1e !(o4e reso%$t0on 1!" (een re!/1e" 0n /ons$%t!t0on (e,ore t1e /!se -!s !ss0&ne" to t1e -r0ter o, t1e o.0n0on o, t1e o$rtHs D040s0on.
S&".

REYNATO S. PUNO 10e, <$st0/e