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SANIDAD VS CCMLLLC
Gk No L44640 Cctober 12 1976
MAk1IN
1he caplLal quesLlon ralsed ln Lhese prohlblLlon sulLs wlLh prellmlnary ln[uncLlon
relaLes Lo Lhe power of Lhe lncumbenL resldenL of Lhe hlllpplnes Lo propose
amendmenLs Lo Lhe presenL ConsLlLuLlon ln Lhe absence of Lhe lnLerlm naLlonal
Assembly whlch has noL been convened
Cn SepLember 2 1976 resldenL lerdlnand L Marcos lssued resldenLlal uecree
no 991 calllng for a naLlonal referendum on CcLober 16 1976 for Lhe ClLlzens
Assemblles (barangays) Lo resolve among oLher Lhlngs Lhe lssues of marLlal law
Lhe l assembly lLs replacemenL Lhe powers of such replacemenL Lhe perlod of lLs
exlsLence Lhe lengLh of Lhe perlod for Llle exerclse by Lhe resldenL of hls presenL
powers1
1wenLy days afLer or on SepLember 22 1976 Lhe resldenL lssued anoLher relaLed
decree resldenLlal uecree no 1031 amendlng Lhe prevlous resldenLlal uecree
no 991 by declarlng Lhe provlslons of presldenLlal uecree no 229 provldlng for Lhe
manner of voLlng and canvass of voLes ln barangays (ClLlzens Assemblles)
appllcable Lo Lhe naLlonal referendumpleblsclLe of CcLober 16 1976 CulLe
relevanLly resldenLlal uecree no 1031 repealed SecLlon 4 of resldenLlal uecree
no 991 Lhe full LexL of whlch (SecLlon 4) ls quoLed ln Lhe fooLnoLe below
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Cn Lhe same daLe of SepLember 22 1976 Lhe resldenL lssued resldenLlal uecree
no 1033 sLaLlng Lhe quesLlons Lo be submlLLed Lo Lhe people ln Lhe referendum
pleblsclLe on CcLober 16 1976 1he uecree reclLes ln lLs whereas clauses LhaL Lhe
peoples conLlnued opposlLlon Lo Lhe convenlng of Lhe naLlonal Assembly evlnces
Lhelr deslre Lo have such body abollshed and replaced Lhru a consLlLuLlonal
amendmenL provldlng for a leglslaLlve body whlch wlll be submlLLed dlrecLly Lo Lhe
people ln Lhe referendumpleblsclLe of CcLober 16
1he quesLlons ask Lo wlL
(1) uo you wanL marLlal law Lo be conLlnued?
(2) WheLher or noL you wanL marLlal law Lo be conLlnued do you approve Lhe
followlng amendmenLs Lo Lhe ConsLlLuLlon? lor Lhe purpose of Lhe second
quesLlon Lhe referendum shall have Lhe effecL of a pleblsclLe wlLhln Lhe
conLemplaLlon of SecLlon 2 of ArLlcle xvl of Lhe ConsLlLuLlon
8CCSLu AMLnuMLn1S
1 1here shall be ln lleu of Lhe lnLerlm naLlonal Assembly an lnLerlm 8aLasang
ambansa Members of Lhe lnLerlm 8aLasang ambansa whlch shall noL be more
Lhan 120 unless oLherwlse provlded by law shall lnclude Lhe lncumbenL resldenL
of Lhe hlllpplnes represenLaLlves elecLed from Lhe dlfferenL reglons of Lhe naLlon
Lhose who shall noL be less Lhan elghLeen years of age elecLed by Lhelr respecLlve
secLors and Lhose chosen by Lhe lncumbenL resldenL from Lhe members of Lhe
CablneL 8eglonal represenLaLlves shall be apporLloned among Lhe reglons ln
accordance wlLh Lhe number of Lhelr respecLlve lnhablLanLs and on Lhe basls of a
unlform and progresslve raLlo whlle Lhe secLors shall be deLermlned by law 1he
number of represenLaLlves from each reglon or secLor and Lhe manner of Lhelr
elecLlon shall be prescrlbed and regulaLed by law
2 1he lnLerlm 8aLasang ambansa shall have Lhe same powers and lLs members
shall have Lhe same funcLlons responslblllLles rlghLs prlvlleges and
dlsquallflcaLlons as Lhe lnLerlm naLlonal Assembly and Lhe regular naLlonal
Assembly and Lhe members Lhereof Powever lL shall noL exerclse Lhe power
provlded ln ArLlcle vlll SecLlon 14(l) of Lhe ConsLlLuLlon
3 1he lncumbenL resldenL of Lhe hlllpplnes shall wlLhln 30 days from Lhe
elecLlon and selecLlon of Lhe members convene Lhe lnLerlm 8aLasang ambansa
and preslde over lLs sesslons unLll Lhe Speaker shall have been elecLed 1he
lncumbenL resldenL of Lhe hlllpplnes shall be Lhe rlme MlnlsLer and he shall
conLlnue Lo exerclse all hls powers even afLer Lhe lnLerlm 8aLasang ambansa ls
organlzed and ready Lo dlscharge lLs funcLlons and llkewlse he shall conLlnue Lo
exerclse hls powers and prerogaLlves under Lhe nlneLeen hundred and LhlrLy flve
ConsLlLuLlon and Lhe powers vesLed ln Lhe resldenL and Lhe rlme MlnlsLer under
Lhls ConsLlLuLlon
4 1he resldenL (rlme MlnlsLer) and hls CablneL shall exerclse all Lhe powers and
funcLlons and dlscharge Lhe responslblllLles of Lhe regular resldenL (rlme
MlnlsLer) and hls CablneL and shall be sub[ecL only Lo such dlsquallflcaLlons as Lhe
resldenL (rlme MlnlsLer) may prescrlbe 1he resldenL (rlme MlnlsLer) lf he so
deslres may appolnL a uepuLy rlme MlnlsLer or as many uepuLy rlme MlnlsLers as
he may deem necessary
3 1he lncumbenL resldenL shall conLlnue Lo exerclse leglslaLlve powers unLll
marLlal law shall have been llfLed
6 Whenever ln Lhe [udgmenL of Lhe resldenL (rlme MlnlsLer) Lhere exlsLs a grave
emergency or a LhreaL or lmmlnence Lhereof or whenever Lhe lnLerlm 8aLasang
ambansa or Lhe regular naLlonal Assembly falls or ls unable Lo acL adequaLely on
any maLLer for any reason LhaL ln hls [udgmenL requlres lmmedlaLe acLlon he may
ln order Lo meeL Lhe exlgency lssue Lhe necessary decrees orders or leLLers of
lnsLrucLlons whlch shall form parL of Lhe law of Lhe land
7 1he barangays and sanggunlans shall conLlnue as presenLly consLlLuLed buL Lhelr
funcLlons powers and composlLlon may be alLered by law
8eferenda conducLed Lhru Lhe barangays and under Lhe Supervlslon of Lhe
Commlsslon on LlecLlons may be called aL any Llme Lhe governmenL deems lL
necessary Lo ascerLaln Lhe wlll of Lhe people regardlng any lmporLanL maLLer
wheLher of naLlonal or local lnLeresL
8 All provlslons of Lhls ConsLlLuLlon noL lnconslsLenL wlLh any of Lhese amendmenLs
shall conLlnue ln full force and effecL
9 1hese amendmenLs shall Lake effecL afLer Lhe lncumbenL resldenL shall have
proclalmed LhaL Lhey have been raLlfled by l ma[orlLy of Lhe voLes casL ln Lhe
referendumpleblsclLe
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1he Commlsslon on LlecLlons was vesLed wlLh Lhe excluslve supervlslon and conLrol
of Lhe CcLober 1976 naLlonal 8eferendumleblsclLe
Cn SepLember 27 1976 A8LC C SAnluAu and A8Ll1C v SAnluAu faLher and
son commenced L44640 for rohlblLlon wlLh rellmlnary ln[uncLlon seeklng Lo
en[oln Lhe Commlsslon on LlecLlons from holdlng and conducLlng Lhe 8eferendum
leblsclLe on CcLober 16 Lo declare wlLhouL force and effecL resldenLlal uecree
nos 991 and 1033 lnsofar as Lhey propose amendmenLs Lo Lhe ConsLlLuLlon as
well as resldenLlal uecree no 1031 lnsofar as lL dlrecLs Lhe Commlsslon on
LlecLlons Lo supervlse conLrol hold and conducL Lhe 8eferendumleblsclLe
scheduled on CcLober 16 1976
eLlLloners conLend LhaL under Lhe 1933 and 1973 ConsLlLuLlons Lhere ls no granL Lo
Lhe lncumbenL resldenL Lo exerclse Lhe consLlLuenL power Lo propose
amendmenLs Lo Lhe new ConsLlLuLlon As a consequence Lhe 8eferendum
leblsclLe on CcLober 16 has no consLlLuLlonal or legal basls
Cn CcLober 3 1976 Lhe SollclLor Ceneral flled Lhe commenL for respondenL
Commlsslon on LlecLlons 1he SollclLor Ceneral prlnclpally malnLalns LhaL
peLlLloners have no sLandlng Lo sue Lhe lssue ralsed ls pollLlcal ln naLure beyond
[udlclal cognlzance of Lhls CourL aL Lhls sLaLe of Lhe LranslLlon perlod only Lhe
lncumbenL resldenL has Lhe auLhorlLy Lo exerclse consLlLuenL power Lhe
referendumpleblsclLe ls a sLep Lowards normallzaLlon
Cn SepLember 30 1976 anoLher acLlon for rohlblLlon wlLh rellmlnary ln[uncLlon
dockeLed as L44684 was lnsLlLuLed by vlCLn1L M CuZMAn a delegaLe Lo Lhe
1971 ConsLlLuLlonal ConvenLlon asserLlng LhaL Lhe power Lo propose amendmenLs
Lo or revlslon of Lhe ConsLlLuLlon durlng Lhe LranslLlon perlod ls expressly conferred
on Lhe lnLerlm naLlonal Assembly under SecLlon 16 ArLlcle xvll of Lhe
ConsLlLuLlon3
SLlll anoLher peLlLlon for rohlblLlon wlLh rellmlnary ln[uncLlon was flled on
CcLober 3 1976 by 8AuL M CCnZALLS hls son 8AuL !8 and ALl8LuC
SALAAn1An dockeLed as L 44714 Lo resLraln Lhe lmplemenLaLlon of resldenLlal
uecrees relaLlve Lo Lhe forLhcomlng 8eferendumleblsclLe of CcLober 16
1hese lasL peLlLloners argue LhaL even granLlng hlm leglslaLlve powers under MarLlal
Law Lhe lncumbenL resldenL cannoL acL as a consLlLuenL assembly Lo propose
amendmenLs Lo Lhe ConsLlLuLlon a referendumpleblsclLe ls unLenable under Lhe
ConsLlLuLlons of 1933 and 1973 Lhe submlsslon of Lhe proposed amendmenLs ln
such a shorL perlod of Llme for dellberaLlon renders Lhe pleblsclLe a nulllLy Lo llfL
MarLlal Law Lhe resldenL need noL consulL Lhe people vla referendum and
allowlng 13year olds Lo voLe would amounL Lo an amendmenL of Lhe ConsLlLuLlon
whlch conflnes Lhe rlghL of suffrage Lo Lhose clLlzens of Lhe hlllpplnes 18 years of
age and above
We flnd Lhe peLlLlons ln Lhe Lhree enLlLled cases Lo be devold of merlL
l
Iostlcloblllty of poestloo tolseJ
1 As a prellmlnary resoluLlon We rule LhaL Lhe peLlLloners ln L44640 (ablo C
Sanldad and abllLo v Sanldad) possess locos stooJl Lo challenge Lhe consLlLuLlonal
premlse of resldenLlal uecree nos 991 1031 and 1033 lL ls now an anclenL rule
LhaL Lhe valld source of a sLaLure resldenLlal uecrees are of such naLuremay be
conLesLed by one who wlll susLaln a dlrecL ln[urles as a ln resulL of lLs enforcemenL
AL Lhe lnsLance of Laxpayers laws provldlng for Lhe dlsbursemenL of publlc funds
may be en[olned upon Lhe Lheory LhaL Lhe expendlLure of publlc funds by an offlcer
of Lhe SLaLe for Lhe purpose of execuLlng an unconsLlLuLlonal acL consLlLuLes a
mlsappllcaLlon of such funds 4 1he breadLh of resldenLlal uecree no 991 carrles
all approprlaLlon of llve Mllllon esos for Lhe effecLlve lmplemenLaLlon of lLs
purposes 3 resldenLlal uecree no 1031 approprlaLes Lhe sum of LlghL Mllllon
esos Lo carry ouL lLs provlslons 6 1he lnLeresL of Lhe aforenamed peLlLloners as
Laxpayers ln Lhe lawful expendlLure of Lhese amounLs of publlc money sufflclenLly
cloLhes Lhem wlLh LhaL personallLy Lo llLlgaLe Lhe valldlLy of Lhe uecrees
approprlaLlng sald funds Moreover as regards Laxpayers sulLs Lhls CourL en[oys
LhaL open dlscreLlon Lo enLerLaln Lhe same or noL 7 lor Lhe presenL case We deem
lL sound Lo exerclse LhaL dlscreLlon afflrmaLlvely so LhaL Lhe auLhorlLy upon whlch
Lhe dlspuLed uecrees are predlcaLed may be lnqulred lnLo
2 1he SollclLor Ceneral would conslder Lhe quesLlon aL bar as a pure pollLlcal one
lylng ouLslde Lhe domaln of [udlclal revlew We dlsagree 1he amendlng process
boLh as Lo proposal and raLlflcaLlon ralses a [udlclal quesLlon 8 1hls ls especlally
Lrue ln cases where Lhe power of Lhe resldency Lo lnlLlaLe Lhe of normally
exerclsed by Lhe leglslaLure ls serlously doubLed under Lhe Lerms of Lhe 1973
ConsLlLuLlon Lhe power Lo propose amendmenLs o Lhe consLlLuLlon resldes ln Lhe
lnLerlm naLlonal Assembly ln Lhe perlod of LranslLlon (See 13 1ranslLory
provlslons) AfLer LhaL perlod and Lhe regular naLlonal Assembly ln lLs acLlve
sesslon Lhe power Lo propose amendmenLs becomes lpso facLo Lhe prerogaLlve of
Lhe regular naLlonal Assembly (Sec 1 pars 1 and 2 of ArL xvl 1973 consLlLuLlon)
1he normal course has noL been followed 8aLher Lhan calllng Lhe naLlonal
Assembly Lo consLlLuLe lLself lnLo a consLlLuenL assembly Lhe lncumbenL resldenL
underLook Lhe proposal of amendmenLs and submlLLed Lhe proposed amendmenLs
Lhru resldenLlal uecree 1033 Lo Lhe people ln a 8eferendumleblsclLe on CcLober
16 unavoldably Lhe regularlLy of Lhe procedure for amendmenLs wrlLLen ln
lambenL words ln Lhe very ConsLlLuLlon soughL Lo be amended ralses a conLesLable
lssue 1he lmplemenLlng resldenLlal uecree nos 991 1031 and 1033 whlch
commonly purporL Lo have Lhe force and effecL of leglslaLlon are assalled as lnvalld
Lhus Lhe lssue of Lhe valldlLy of sald uecrees ls plalnly a [usLlclable one wlLhln Lhe
compeLence of Lhls CourL Lo pass upon SecLlon 2 (2) ArLlcle x of Lhe new
ConsLlLuLlon provldes All cases lnvolvlng Lhe consLlLuLlonallLy of a LreaLy execuLlve
agreemenL or law may shall be heard and declded by Lhe Supreme CourL en banc
and no LreaLy execuLlve agreemenL or law may be declared unconsLlLuLlonal
wlLhouL Lhe concurrence of aL leasL Len Members 1he Supreme CourL has Lhe
3

lasL word ln Lhe consLrucLlon noL only of LreaLles and sLaLuLes buL also of Lhe
ConsLlLuLlon lLself 1he amendlng llke all oLher powers organlzed ln Lhe
ConsLlLuLlon ls ln form a delegaLed and hence a llmlLed power so LhaL Lhe Supreme
CourL ls vesLed wlLh LhaL auLhorlLles Lo deLermlne wheLher LhaL power has been
dlscharged wlLhln lLs llmlLs
ollLlcal quesLlons are neaLly assoclaLed wlLh Lhe wlsdom of Lhe legallLy of a
parLlcular acL Where Lhe vorLex of Lhe conLroversy refers Lo Lhe legallLy or valldlLy
of Lhe conLesLed acL LhaL maLLer ls deflnlLely [usLlclable or nonpollLlcal WhaL ls ln
Lhe heels of Lhe CourL ls noL Lhe wlsdom of Lhe acL of Lhe lncumbenL resldenL ln
proposlng amendmenLs Lo Lhe ConsLlLuLlon buL hls consLlLuLlonal auLhorlLy Lo
perform such acL or Lo assume Lhe power of a consLlLuenL assembly WheLher Lhe
amendlng process confers on Lhe resldenL LhaL power Lo propose amendmenLs ls
Lherefore a downrlghL [usLlclable quesLlon Should Lhe conLrary be found Lhe
acLuaLlon of Lhe resldenL would merely be a btotom folmeo lf Lhe ConsLlLuLlon
provldes how lL may be amended Lhe [udlclary as Lhe lnLerpreLer of LhaL
ConsLlLuLlon can declare wheLher Lhe procedure followed or Lhe auLhorlLy assumed
was valld or noL
10

We cannoL accepL Lhe vlew of Lhe SollclLor Ceneral ln pursulng hls Lheory of non
[usLlclablllLy LhaL Lhe quesLlon of Lhe resldenLs auLhorlLy Lo propose amendmenLs
and Lhe regularlLy of Lhe procedure adopLed for submlsslon of Lhe proposal Lo Lhe
people ulLlmaLely lle ln Lhe [udgmenL of Lhe A clear uescarLes fallacy of vlcloos
cltcle ls lL noL LhaL Lhe people Lhemselves by Lhelr soverelgn acL provlded for Lhe
auLhorlLy and procedure for Lhe amendlng process when Lhey raLlfled Lhe presenL
ConsLlLuLlon ln 1973? WheLher Lherefore Lhe consLlLuLlonal provlslon has been
followed or noL ls Lhe proper sub[ecL of lnqulry noL by Lhe people Lhemselves of
course who exerclse no power of [udlclal buL by Lhe Supreme CourL ln whom Lhe
people Lhemselves vesLed LhaL power a power whlch lncludes Lhe compeLence Lo
deLermlne wheLher Lhe consLlLuLlonal norms for amendmenLs have been observed
or noL And Lhls lnqulry musL be done a prlor noL a posLerlor le before Lhe
submlsslon Lo and raLlflcaLlon by Lhe people
lndeed Lhe precedenLs evolved by Lhe CourL or prlor consLlLuLlonal cases underllne
Lhe preference of Lhe CourLs ma[orlLy Lo LreaL such lssue of resldenLlal role ln Lhe
amendlng process as one of nonpollLlcal lmpresslon ln Lhe leblsclLe Cases
11
Lhe
conLenLlon of Lhe SollclLor Ceneral LhaL Lhe lssue on Lhe legallLy of resldenLlal
uecree no 73 submlLLlng Lo Lhe lllplno people (on !anuary 13 1973) for
raLlflcaLlon or re[ecLlon Lhe ConsLlLuLlon of Lhe 8epubllc of Lhe hlllpplnes proposed
by Lhe 1971 ConsLlLuLlonal ConvenLlon and approprlaLlng fund s Lherefore ls a
pollLlcal one was re[ecLed and Lhe CourL unanlmously consldered Lhe lssue as
[usLlclable ln naLure SubsequenLly ln Lhe 8aLlflcaLlon Cases
12
lnvolvlng Lhe lssue of
wheLher or noL Lhe valldlLy of resldenLlal roclamaLlon no 1102 announclng Lhe
8aLlflcaLlon by Lhe llllplno people of Lhe consLlLuLlon proposed by Lhe 1971
ConsLlLuLlonal ConvenLlon parLakes of Lhe naLure of a pollLlcal quesLlon Lhe
afflrmaLlve sLand of Lhe SollclLor Ceneral was dlsmlssed Lhe CourL ruled LhaL Lhe
quesLlon ralsed ls [usLlclable Chlef !usLlce Concepclon expresslng Lhe ma[orlLy
vlew sald 1hus ln Lhe aforemenLloned pleblsclLe cases We re[ecLed Lhe Lheory of
Lhe respondenLs Lhereln LhaL Lhe quesLlon wheLher resldenLlal uecree no 73
calllng a pleblsclLe Lo be held on !anuary 13 1973 for Lhe raLlflcaLlon or re[ecLlon of
Lhe proposed new ConsLlLuLlon was valld or noL was noL a proper sub[ecL of
[udlclal lnqulry because Lhey clalmed lL parLook of a pollLlcal naLure and We
unanlmously declared LhaL Lhe lssue was a [usLlclable one WlLh ldenLlcal unanlmlLy
We overruled Lhe respondenLs conLenLlon ln Lhe 1971 habeas corpus cases
quesLlonlng Cur auLhorlLy Lo deLermlne Lhe consLlLuLlonal sufflclency of Lhe facLual
bases of Lhe resldenLlal proclamaLlon suspendlng Lhe prlvllege of Lhe wrlL of
habeas corpus on AugusL 21 1971 desplLe Lhe opposlLe vlew Laken by Lhls CourL ln
8arcelon vs 8aker and MonLenegro vs CasLaneda lnsofar as lL adhered Lo Lhe
former case whlch vlew We accordlngly abandoned and refused Lo apply lor Lhe
same reason We dld noL apply and expressly modlfled ln Conzales vs Commlsslon
on LlecLlons Lhe pollLlcalquesLlon Lheory adopLed ln Mabanag vs Lopez vlLo
13

1he reLurn Lo 8arcelon vs 8aker and Mabanag vs Lopez vlLo urged by Lhe SollclLor
Ceneral was declslvely refused by Lhe CourL Chlef !usLlce Concepclon conLlnued
1he reasons adduced ln supporL Lhereof are however subsLanLlally Lhe same as
Lhose glven ln supporL on Lhe pollLlcal quesLlon Lheory advanced ln sald habeas
corpus and pleblsclLe cases whlch were carefully consldered by Lhls CourL and
found by lL Lo be legally unsound and consLlLuLlonally unLenable As a consequence
Cur declslons ln Lhe aforemenLloned habeas corpus cases parLakes of Lhe naLure
and effecL of a sLare declsls whlch galned added welghL by lLs vlrLual relLeraLlon
ll
1he amendlng process as lald ouL
ln Lhe new ConsLlLuLlon
1 ArLlcle xvl of Lhe 1973 ConsLlLuLlon on AmendmenLs ordalns
SLC1lCn 1 (1) Any amendmenL Lo or revlslon of Lhls ConsLlLuLlon may be
proposed by Lhe naLlonal Assembly upon a voLe of LhreefourLhs of all lLs Members
or by a consLlLuLlonal convenLlon (2) 1he naLlonal Assembly may by a voLe of Lwo
Lhlrds of all lLs Members call a consLlLuLlonal convenLlon or by a ma[orlLy voLe of
all lLs Members submlL Lhe quesLlon of calllng such a convenLlon Lo Lhe elecLoraLe
ln an elecLlon
SLC1lCn 2 Any amendmenL Lo or revlslon of Lhls ConsLlLuLlon shall be valld when
raLlfled by a ma[orlLy of Lhe voLes casL ln a pleblsclLe whlch shall be held noL laLer
Lhan Lhree monLhs afLer Lhe approval of such amendmenL or revlslon
ln Lhe presenL perlod of LranslLlon Lhe lnLerlm naLlonal Assembly lnsLlLuLed ln Lhe
1ranslLory rovlslons ls conferred wlLh LhaL amendlng power SecLlon 13 of Lhe
1ranslLory rovlslons reads
SLC1lCn 13 1he lnLerlm naLlonal Assembly upon speclal call by Lhe lnLerlm rlme
MlnlsLer may by a ma[orlLy voLe of all lLs Members propose amendmenLs Lo Lhls
4

ConsLlLuLlon Such amendmenLs shall Lake effecL when raLlfled ln accordance wlLh
ArLlcle SlxLeen hereof
1here are Lherefore Lwo perlods conLemplaLed ln Lhe consLlLuLlonal llfe of Lhe
naLlon le perlod of normalcy and perlod of LranslLlon ln Llmes of normally Lhe
amendlng process may be lnlLlaLed by Lhe proposals of Lhe (1) regular naLlonal
Assembly upon a voLe of LhreefourLhs of all lLs members or (2) by a ConsLlLuLlonal
ConvenLlon called by a voLe of LwoLhlrds of all Lhe Members of Lhe naLlonal
Assembly Powever Lhe calllng of a ConsLlLuLlonal ConvenLlon may be submlLLed Lo
Lhe elecLoraLe ln an elecLlon voLed upon by a ma[orlLy voLe of all Lhe members of
Lhe naLlonal Assembly ln Llmes of LranslLlon amendmenLs may be proposed by a
ma[orlLy voLe of all Lhe Members of Lhe naLlonal Assembly upon speclal call by Lhe
lnLerlm rlme MlnlsLer
2 1hls CourL ln Aqulno v CCMLLLC had already seLLled LhaL Lhe lncumbenL
resldenL ls vesLed wlLh LhaL prerogaLlve of dlscreLlon as Lo when he shall lnlLlally
convene Lhe lnLerlm naLlonal Assembly Speaklng for Lhe ma[orlLy oplnlon ln LhaL
case !usLlce Makaslar sald 1he ConsLlLuLlonal ConvenLlon lnLended Lo leave Lo Lhe
resldenL Lhe deLermlnaLlon of Lhe Llme when he shall lnlLlally convene Lhe lnLerlm
naLlonal Assembly conslsLenL wlLh Lhe prevalllng condlLlons of peace and order ln
Lhe counLry Concurrlng !usLlce lernandez hlmself a member of LhaL
ConsLlLuLlonal ConvenLlon revealed (W)hen Lhe uelegaLes Lo Lhe ConsLlLuLlonal
ConvenLlon voLed on Lhe 1ranslLory rovlslons Lhey were aware of Lhe facL LhaL
under Lhe same Lhe lncumbenL resldenL was glven Lhe dlscreLlon as Lo when he
could convene Lhe lnLerlm naLlonal Assembly lL was so sLaLed plalnly by Lhe
sponsor uelegaLe ?aneza as a maLLer of facL Lhe proposal LhaL lL be convened
lmmedlaLely made by uelegaLe lmenLel (v) was re[ecLed 1he resldenLs
declslon Lo defer Lhe convenlng of Lhe lnLerlm naLlonal Assembly soon found
supporL from Lhe people Lhemselves ln Lhe pleblsclLe of !anuary 1013 1973 aL
whlch Lhe raLlflcaLlon of Lhe 1973 ConsLlLuLlon was submlLLed Lhe people voLed
agalnsL Lhe convenlng of Lhe lnLerlm naLlonal Assembly ln Lhe referendum of !uly
24 1973 Lhe ClLlzens Assemblles (bagangays) relLeraLed Lhelr soverelgn wlll Lo
wlLhhold Lhe convenlng of Lhe lnLerlm naLlonal Assembly Agaln ln Lhe referendum
of lebruary 27 1973 Lhe proposed quesLlon of wheLher Lhe lnLerlm naLlonal
Assembly shall be lnlLlally convened was ellmlnaLed because some of Lhe members
of Congress and delegaLes of Lhe ConsLlLuLlonal ConvenLlon who were deemed
auLomaLlcally members of Lhe l lnLerlm naLlonal Assembly were agalnsL lLs
lncluslon slnce ln LhaL referendum of !anuary 1973 Lhe people had already
resolved agalnsL lL
3 ln sensu sLrlcLlore when Lhe leglslaLlve arm of Lhe sLaLe underLakes Lhe proposals
of amendmenL Lo a ConsLlLuLlon LhaL body ls noL ln Lhe usual funcLlon of
lawmaklng lL ls noL leglslaLlng when engaged ln Lhe amendlng process16 8aLher lL
ls exerclslng a pecullar power besLowed upon lL by Lhe fundamenLal charLer lLself ln
Lhe hlllpplnes LhaL power ls provlded for ln ArLlcle xvl of Lhe 1973 ConsLlLuLlon
(for Lhe regular naLlonal Assembly) or ln SecLlon 13 of Lhe 1ranslLory rovlslons (for
Lhe naLlonal Assembly) Whlle ordlnarlly lL ls Lhe buslness of Lhe leglslaLlng body Lo
leglslaLe for Lhe naLlon by vlrLue of consLlLuLlonal confermenL amendlng of Lhe
ConsLlLuLlon ls noL leglslaLlve ln characLer ln pollLlcal sclence a dlsLlncLlon ls made
beLween consLlLuLlonal conLenL of an organlc characLer and LhaL of a leglslaLlve
characLer 1he dlsLlncLlon however ls one of pollcy noL of law
17
Such belng Lhe
case approval of Lhe resldenL of any proposed amendmenL ls a mlsnomer
18
1he
prerogaLlve of Lhe resldenL Lo approve or dlsapprove applles only Lo Lhe ordlnary
cases of leglslaLlon 1he resldenL has noLhlng Lo do wlLh proposlLlon or adopLlon of
amendmenLs Lo Lhe ConsLlLuLlon
19

lll
ConcenLraLlon of owers
ln Lhe resldenL durlng
crlsls governmenL
1 ln general Lhe governmenLal powers ln crlsls governmenL Lhe hlllpplnes ls a
crlsls governmenL Loday are more or less concenLraLed ln Lhe resldenL
20

Accordlng Lo 8osslLer (L)he concenLraLlon of governmenL power ln a democracy
faced by an emergency ls a correcLlve Lo Lhe crlsls lnefflclencles lnherenL ln Lhe
docLrlne of Lhe separaLlon of powers ln mosL free sLaLes lL has generally been
regarded as lmperaLlve LhaL Lhe LoLal power of Lhe governmenL be parceled ouL
among Lhree muLually lndependenL branches execuLlve leglslaLure and [udlclary lL
ls belleved Lo be desLrucLlve of consLlLuLlonallsm lf any one branch should exerclse
any Lwo or more Lypes of power and cerLalnly a LoLal dlsregard of Lhe separaLlon of
powers ls as Madlson wroLe ln Lhe lederallsL no 47 Lhe very deflnlLlon of
Lyranny ln normal Llmes Lhe separaLlon of powers forms a dlsLlncL obsLrucLlon Lo
arblLrary governmenLal acLlon 8y Lhls same Loken ln abnormal Llmes lL may form
an lnsurmounLable barrler Lo a declslve emergency acLlon ln behalf of Lhe sLaLe and
lLs lndependenL exlsLence 1here are momenLs ln Lhe llfe of any governmenL when
all powers musL work LogeLher ln unanlmlLy of purpose and acLlon even lf Lhls
means Lhe Lemporary unlon of execuLlve leglslaLlve and [udlclal power ln Lhe
hands of one man 1he more compleLe Lhe separaLlon of powers ln a consLlLuLlonal
sysLem Lhe more dlfflculL and yeL Lhe more necessary wlll be Lhelr fuslon ln Llme of
crlsls 1hls ls evldenL ln a comparlson of Lhe crlsls poLenLlallLles of Lhe cablneL and
presldenLlal sysLems of governmenL ln Lhe former Lhe alllmporLanL harmony of
leglslaLure and execuLlve ls Laken for granLed ln Lhe laLLer lL ls nelLher guaranLeed
nor Lo be Lo confldenLly expecLed As a resulL cablneL ls more easlly esLabllshed and
more LrusLworLhy Lhan presldenLlal dlcLaLorshlp 1he power of Lhe sLaLe ln crlsls
musL noL only be concenLraLed and expanded lL musL also be freed from Lhe
normal sysLem of consLlLuLlonal and legal llmlLaLlons
21
!ohn Locke on Lhe oLher
hand clalms for Lhe execuLlve ln lLs own rlghL a broad dlscreLlon capable even of
seLLlng aslde Lhe ordlnary laws ln Lhe meeLlng of speclal exlgencles for whlch Lhe
leglslaLlve power had noL provlded
22
1he raLlonale behlnd such broad emergency
3

powers of Lhe LxecuLlve ls Lhe release of Lhe governmenL from Lhe paralysls of
consLlLuLlonal resLralns so LhaL Lhe crlsls may be ended and normal Llmes resLored
2 1he presldenLlal exerclse of leglslaLlve powers ln Llme of marLlal law ls now a
conceded valld aL 1haL sun clear auLhorlLy of Lhe resldenL ls saddled on SecLlon 3
(pars 1 and 2) of Lhe 1ranslLory rovlslons Lhus
23

1he lncumbenL resldenL of Lhe hlllpplnes shall lnlLlally convene Lhe lnLerlm
naLlonal Assembly and shall preslde over lLs sesslons unLll Lhe lnLerlm Speaker shall
have been elecLed Pe shall conLlnue Lo exerclse hls powers and prerogaLlves under
Lhe nlneLeen hundred and LhlrLyflve ConsLlLuLlon and Lhe powers vesLed ln Lhe
resldenL and Lhe rlme MlnlsLer under Lhls ConsLlLuLlon unLll Lhe calls upon Lhe
lnLerlm naLlonal Assembly Lo elecL Lhe lnLerlm resldenL and Lhe lnLerlm rlme
MlnlsLer who shall Lhen exerclse Lhelr respecLlve powers vesLed by Lhls
ConsLlLuLlon
All proclamaLlons orders decrees lnsLrucLlons and acLs promulgaLed lssued or
done by Lhe lncumbenL resldenL shall be parL of Lhe law of Lhe land and shall
remaln valld blndlng and effecLlve even afLer llfLlng of marLlal law or Lhe
raLlflcaLlon of Lhls ConsLlLuLlon unless modlfled revoked or superseded by
subsequenL proclamaLlons orders decrees lnsLrucLlons or oLher acLs of Lhe
lncumbenL resldenL or unless expressly and expllclLly modlfled or repealed by Lhe
regular naLlonal Assembly
lL ls unLhlnkable sald !usLlce lernandez a 1971 ConsLlLuLlonal ConvenLlon
delegaLe LhaL Lhe ConsLlLuLlonal ConvenLlon whlle glvlng Lo Lhe resldenL Lhe
dlscreLlon when Lo call Lhe lnLerlm naLlonal Assembly Lo sesslon and knowlng LhaL
lL may noL be convened soon would creaLe a vacuum ln Lhe exerclse of leglslaLlve
powers CLherwlse wlLh no one Lo exerclse Lhe lawmaklng powers Lhere would be
paralyzaLlon of Lhe enLlre governmenLal machlnery
24
araphraslng 8osslLer Lhls ls
an exLremely lmporLanL facLor ln any consLlLuLlonal dlcLaLorshlp whlch exLends over
a perlod of Llme 1he separaLlon of execuLlve and leglslaLure ordalned ln Lhe
ConsLlLuLlon presenLs a dlsLlncL obsLrucLlon Lo efflclenL crlsls governmenL 1he
sLeady lncrease ln execuLlve power ls noL Loo much a cause for as Lhe sLeady
lncrease ln Lhe magnlLude and complexlLy of Lhe problems Lhe resldenL has been
called upon by Lhe llllplno people Lo solve ln Lhelr behalf whlch lnvolve rebelllon
subverslon secesslon recesslon lnflaLlon and economlc crlslsa crlsls greaLer Lhan
war ln shorL whlle convenLlonal consLlLuLlonal law [usL conflnes Lhe resldenLs
power as CommanderlnChlef Lo Lhe dlrecLlon of Lhe operaLlon of Lhe naLlonal
forces yeL Lhe facLs of our pollLlcal soclal and economlc dlsLurbances had
convlnclngly shown LhaL ln meeLlng Lhe same lndeflnlLe power should be aLLrlbuLed
Lo Llle resldenL Lo Lake emergency measures
2S

lv
AuLhorlLy of Lhe lncumbenL
resldenL L Lo propose
amendmenLs Lo Lhe ConsLlLuLlon
1 As earller polnLed ouL Lhe power Lo leglslaLe ls consLlLuLlonally conslgned Lo Lhe
lnLerlm naLlonal Assembly durlng Lhe LranslLlon perlod Powever Lhe lnlLlal
convenlng of LhaL Assembly ls a maLLer fully addressed Lo Lhe [udgmenL of Lhe
lncumbenL resldenL And ln Lhe exerclse of LhaL [udgmenL Lhe resldenL opLed Lo
defer convenlng of LhaL body ln uLLer recognlLlon of Lhe peoples preference
Llkewlse ln Lhe perlod of LranslLlon Lhe power Lo propose amendmenLs Lo Lhe
ConsLlLuLlon lles ln Lhe lnLerlm naLlonal Assembly upon speclal call by Lhe resldenL
(See 13 of Lhe 1ranslLory rovlslons) Agaln harklng Lo Lhe dlcLaLes of Lhe soverelgn
wlll Lhe resldenL declded noL Lo call Lhe lnLerlm naLlonal Assembly Would lL Lhen
be wlLhln Lhe bounds of Lhe ConsLlLuLlon and of law for Lhe resldenL Lo assume
LhaL consLlLuenL power of Lhe lnLerlm Assembly vlsavls hls assumpLlon of LhaL
bodys leglslaLlve funcLlons? 1he answer ls yes lf Lhe resldenL has been
leglLlmaLely dlscharglng Lhe leglslaLlve funcLlons of Lhe lnLerlm Assembly Lhere ls
no reason why he cannoL valldly dlscharge Lhe funcLlon of LhaL Assembly Lo propose
amendmenLs Lo Lhe ConsLlLuLlon whlch ls buL ad[uncL alLhough pecullar Lo lLs
gross leglslaLlve power 1hls of course ls noL Lo say LhaL Lhe resldenL has
converLed hls offlce lnLo a consLlLuenL assembly of LhaL naLure normally consLlLuLed
by Lhe leglslaLure 8aLher wlLh Lhe lnLerlm naLlonal Assembly noL convened and
only Lhe resldency and Lhe Supreme CourL ln operaLlon Lhe urges of absoluLe
necesslLy render lL lmperaLlve upon Lhe resldenL Lo acL as agenL for and ln behalf
of Lhe people Lo propose amendmenLs Lo Lhe ConsLlLuLlon arenLheLlcally by lLs
very consLlLuLlon Lhe Supreme CourL possesses no capaclLy Lo propose
amendmenLs wlLhouL consLlLuLlonal lnfracLlons lor Lhe resldenL Lo shy away from
LhaL acLuallLy and decllne Lo underLake Lhe amendlng process would leave Lhe
governmenLal machlnerles aL a sLalemaLe or creaLe ln Lhe powers of Lhe SLaLe a
desLrucLlve vacuum Lhereby lmpedlng Lhe ob[ecLlve of a crlsls governmenL Lo end
Lhe crlsls and resLore normal Llmes ln Lhese parlous Llmes LhaL resldenLlal
lnlLlaLlve Lo reduce lnLo concreLe forms Lhe consLanL volces of Lhe people relgns
supreme AfLer all consLlLuenL assemblles or consLlLuLlonal convenLlons llke Lhe
resldenL now are mere agenLs of Lhe people 26
2 1he resldenLs acLlon ls noL a unllaLeral move As early as Lhe referendums of
!anuary 1973 and lebruary 1973 Lhe people had already re[ecLed Lhe calllng of Lhe
lnLerlm naLlonal Assembly 1he Lupong 1agapagpaganap of Lhe kaLlpunan ng mga
Sanggunlan Lhe ambansang kaLlpunan ng mga 8arangay and Lhe ambansang
kaLlpunan ng mga 8arangay represenLlng 42000 barangays abouL Lhe same
number of kabaLaang 8arangay organlzaLlons Sanggunlans ln 1438 munlclpallLles
72 provlnces 3 subprovlnces and 60 clLles had lnformed Lhe resldenL LhaL Lhe
prevalllng senLlmenL of Lhe people ls for Lhe abollLlon of Lhe lnLerlm naLlonal
Assembly CLher lssues concerned Lhe llfLlng of marLlal law and amendmenLs Lo Lhe
ConsLlLuLlon 27 1he naLlonal organlzaLlons of Sanggunlang 8ayan presenLly
proposed Lo seLLle Lhe lssues of marLlal law Lhe lnLerlm Assembly lLs replacemenL
Lhe perlod of lLs exlsLence Lhe lengLh of Lhe perlod for Lhe exerclse by Lhe resldenL
6

of lLs presenL powers ln a referendum Lo be held on CcLober 16
28
1he 8aLasang
8ayan (leglslaLlve councll) creaLed under resldenLlal uecree 993 of SepLember 10
1976 composed of 19 cablneL members 9 offlclals wlLh cablneL rank 91 members
of Lhe Lupong 1agapagpaganap (execuLlve commlLLee) of Lhe kaLlpunan ng mga
Sanggunlang 8ayan voLed ln sesslon Lo submlL dlrecLly Lo Lhe people ln a pleblsclLe
on CcLober 16 Lhe prevlously quoLed proposed amendmenLs Lo Lhe ConsLlLuLlon
lncludlng Lhe lssue of marLlal law 29 Slmllarly Lhe barangays and Lhe
sanggunlans endorsed Lo Lhe resldenL Lhe submlsslon of Lhe proposed
amendmenLs Lo Lhe people on CcLober 16 All Lhe foregolng led Lhe resldenL Lo
lnlLlaLe Lhe proposal of amendmenLs Lo Lhe ConsLlLuLlon and Lhe subsequenL
lssuance of resldenLlal uecree no 1033 on SepLember 22 1976 submlLLlng Lhe
quesLlons (proposed amendmenLs) Lo Lhe people ln Lhe naLlonal 8eferendum
leblsclLe on CcLober 16
v
1he eople ls Soverelgn
1 unllke ln a federal sLaLe Lhe locaLlon of soverelgnLy ln a unlLary sLaLe ls easlly
seen ln Lhe hlllpplnes a republlcan and unlLary sLaLe soverelgnLy resldes ln Lhe
people and all governmenL auLhorlLy emanaLes from Lhem 30 ln lLs fourLh
meanlng Savlgny would LreaL people as LhaL parLlcular organlzed assembly of
lndlvlduals ln whlch accordlng Lo Lhe ConsLlLuLlon Lhe hlghesL power exlsLs
31
1hls
ls Lhe concepL of popular soverelgnLy lL means LhaL Lhe consLlLuLlonal leglslaLor
namely Lhe people ls soverelgn
32
ln consequence Lhe people may Lhus wrlLe lnLo
Lhe ConsLlLuLlon Lhelr convlcLlons on any sub[ecL Lhey choose ln Lhe absence of
express consLlLuLlonal prohlblLlon
33
1hls ls because as Polmes sald Lhe
ConsLlLuLlon ls an experlmenL as all llfe ls all experlmenL
34
1he necesslLles of
orderly governmenL wroLe 8oLLschaefer do noL requlre LhaL one generaLlon
should be permlLLed Lo permanenLly feLLer all fuLure generaLlons A consLlLuLlon ls
based Lherefore upon a selfllmlLlng declslon of Lhe people when Lhey adopL lL
3S

2 1he CcLober 16 referendumpleblsclLe ls a resoundlng call Lo Lhe people Lo
exerclse Lhelr soverelgn power as consLlLuLlonal leglslaLor 1he proposed
amendmenLs as earller dlscussed proceed noL from Lhe Lhlnklng of a slngle man
8aLher Lhey are Lhe collaLed LhoughLs of Lhe soverelgn wlll reduced only lnLo
enabllng forms by Lhe auLhorlLy who can presenLly exerclse Lhe powers of Lhe
governmenL ln equal veln Lhe submlsslon of Lhose proposed amendmenLs and Lhe
quesLlon of marLlal law ln a referendumpleblsclLe expresses buL Lhe opLlon of Lhe
people Lhemselves lmplemenLed only by Lhe auLhorlLy of Lhe resldenL lndeed lL
may well be sald LhaL Lhe amendlng process ls a soverelgn acL alLhough Lhe
auLhorlLy Lo lnlLlaLe Lhe same and Lhe procedure Lo be followed reslde somehow ln
a parLlcular body
vl
8eferendumleblsclLe noL
rendered nugaLory by Lhe
parLlclpaLlon of Lhe 13year olds
1 CcLober 16 ls ln parLs a referendum and a pleblsclLe 1he quesLlon (1) uo you
wanL marLlal law Lo be conLlnued? ls a referendum quesLlon whereln Lhe 13year
olds may parLlclpaLe 1hls was prompLed by Lhe deslre of Lhe CovernmenL Lo reach
Lhe larger mas of Lhe people so LhaL Lhelr Lrue pulse may be felL Lo gulde Lhe
resldenL ln pursulng hls program for a new Crder lor Lhe succeedlng quesLlon on
Lhe proposed amendmenLs only Lhose of voLlng age of 18 years may parLlclpaLe
1hls ls Lhe pleblsclLe aspecL as conLemplaLed ln SecLlon 2 ArLlcle xvl of Lhe new
ConsLlLuLlon
36
Cn Lhls second quesLlon lL would only be Lhe voLes of Lhose 18
years old and above whlch wlll have valld bearlng on Lhe resulLs 1he facL LhaL Lhe
voLlng populace are slmulLaneously asked Lo answer Lhe referendum quesLlon and
Lhe pleblsclLe quesLlon does noL lnflrm Lhe referendumpleblsclLe 1here ls noLhlng
ob[ecLlonable ln consulLlng Lhe people on a glven lssue whlch ls of currenL one and
submlLLlng Lo Lhem for raLlflcaLlon of proposed consLlLuLlonal amendmenLs 1he
fear of commlngled voLes (13year olds and 18year olds above) ls readlly dlspelled
by Lhe provlslon of Lwo balloL boxes for every barangay cenLer one conLalnlng Lhe
balloLs of voLers flfLeen years of age and under elghLeen and anoLher conLalnlng
Lhe balloLs of voLers elghLeen years of age and above
37
1he balloLs ln Lhe balloL box
for voLers flfLeen years of age and under elghLeen shall be counLed ahead of Lhe
balloLs of voLers elghLeen years and above conLalned ln anoLher balloL box And Lhe
resulLs of Lhe referendumpleblsclLe shall be separaLely prepared for Lhe age
grouplngs le balloLs conLalned ln each of Lhe Lwo boxes
38

2 lL ls apL Lo dlsLlngulsh here beLween a referendum and a pleblsclLe A
referendum ls merely consulLaLlve ln characLer lL ls slmply a means of assesslng
publlc reacLlon Lo Lhe glven lssues submlLLed Lo Lhe people foe Lhelr conslderaLlon
Lhe calllng of whlch ls derlved from or wlLhln Lhe LoLallLy of Lhe execuLlve power of
Lhe resldenL
39
lL ls parLlclpaLed ln by all clLlzens from Lhe age of flfLeen regardless
of wheLher or noL Lhey are llllLeraLes feeblemlnded or ex convlcLs
40
A
pleblsclLe on Lhe oLher hand lnvolves Lhe consLlLuenL acL of Lhose clLlzens of Lhe
hlllpplnes noL oLherwlse dlsquallfled by law who are elghLeen years of age or
over and who shall have reslded ln Lhe hlllpplnes for aL leasL one year and ln Lhe
place whereln Lhey propose Lo voLe for aL leasL slx monLhs precedlng Lhe elecLlon
LlLeracy properLy or any oLher subsLanLlve requlremenL ls noL lmposed lL ls
generally assoclaLed wlLh Lhe amendlng process of Lhe ConsLlLuLlon more
parLlcularly Lhe raLlflcaLlon aspecL
vll
1 1here appeals Lo be no valld basls for Lhe clalm LhaL Lhe reglme of marLlal law
sLulLlfles ln maln Lhe freedom Lo dlssenL 1haL speaks of a bygone fear 1he marLlal
law reglme whlch ln Lhe observaLlon of !usLlce lernando
41
ls lmpressed wlLh a
mlld characLer recorded no SLaLe lmposlLlon for a muffled volce 1o be sure Lhere
are resLralnLs of Lhe lndlvldual llberLy buL on cerLaln grounds no LoLal suppresslon
of LhaL llberLy ls almed aL 1he for Lhe referendumpleblsclLe on CcLober 16
7

recognlzes all Lhe embraclng freedoms of expresslon and assembly 1he resldenL
hlmself had announced LhaL he would noL counLenance any suppresslon of
dlssenLlng vlews on Lhe lssues as he ls noL lnLeresLed ln wlnnlng a yes or no
voLe buL on Lhe genulne senLlmenL of Lhe people on Lhe lssues aL hand
42
1hus Lhe
dlssenLers soon found Lhelr way Lo Lhe publlc forums volclng ouL loud and clear
Lhelr adverse vlews on Lhe proposed amendmenLs and even (ln Lhe valld raLlflcaLlon
of Lhe 1973 ConsLlLuLlon whlch ls already a seLLled maLLer
43
Lven governmenL
employees have been held by Lhe Clvll Servlce Commlsslon free Lo parLlclpaLe ln
publlc dlscusslon and even campalgn for Lhelr sLand on Lhe referendumpleblsclLe
lssues
44

vlll
1lme for dellberaLlon
ls noL shorL
1 1he perlod from SepLember 21 Lo CcLober 16 or a perlod of 3 weeks ls noL Loo
shorL for free debaLes or dlscusslons on Lhe referendumpleblsclLe lssues 1he
quesLlons are noL new 1hey are Lhe lssues of Lhe day 1he people have been llvlng
wlLh Lhem slnce Lhe proclamaLlon of marLlal law four years ago 1he referendums of
1973 and 1973 carrled Lhe same lssue of marLlal law 1haL noLwlLhsLandlng Lhe
conLesLed brlef perlod for dlscusslon ls noL wlLhouL counLerparLs ln prevlous
pleblsclLes for consLlLuLlonal amendmenLs !usLlce Makaslar ln Lhe 8eferendum
Case recalls under Lhe old SocleLy 13 days were alloLLed for Lhe publlcaLlon ln
Lhree consecuLlve lssues of Lhe Cfflclal CazeLLe of Lhe womens suffrage
amendmenL Lo Lhe ConsLlLuLlon before Lhe scheduled pleblsclLe on Aprll 30 1937
(Com AcL no 34) 1he consLlLuLlonal amendmenL Lo append as ordlnance Lhe
compllcaLed 1ydlngskoclalskowskl was publlshed ln only Lhree consecuLlve lssues
of Lhe Cfflclal CazeLLe for 10 days prlor Lo Lhe scheduled pleblsclLe (Com AcL 492)
lor Lhe 1940 ConsLlLuLlonal amendmenLs provldlng for Lhe blcameral Congress Lhe
reelecLlon of Lhe resldenL and vlce resldenL and Lhe creaLlon of Lhe Commlsslon
on LlecLlons 20 days of publlcaLlon ln Lhree consecuLlve lssues of Lhe Cfflclal
CazeLLe was flxed (Com AcL no 317) And Lhe arlLy AmendmenL an lnvolved
consLlLuLlonal amendmenL affecLlng Lhe economy as well as Lhe lndependence of
Lhe 8epubllc was publlclzed ln Lhree consecuLlve lssues of Lhe Cfflclal CazeLLe for 20
days prlor Lo Lhe pleblsclLe (8ep AcL no 73)
4S

2 lL ls worLhy Lo noLe LhaL ArLlcle xvl of Lhe ConsLlLuLlon makes no provlslon as Lo
Lhe speclflc daLe when Lhe pleblsclLe shall be held buL slmply sLaLes LhaL lL shall be
held noL laLer Lhan Lhree monLhs afLer Lhe approval of such amendmenL or
revlslon ln Coleman v Mlller
46
Lhe unlLed SLaLes Supreme courL held LhaL Lhls
maLLer of submlsslon lnvolves an appralsal of a greaL varleLy of relevanL condlLlons
pollLlcal soclal and economlc whlch are essenLlally pollLlcal and noL [usLlclable
1he consLlLuenL body or ln Lhe lnsLanL cases Lhe resldenL may flx Lhe Llme wlLhln
whlch Lhe people may acL 1hls ls because proposal and raLlflcaLlon are noL LreaLed
as unrelaLed acLs buL as succeedlng sLeps ln a slngle endeavor Lhe naLural
lnference belng LhaL Lhey are noL Lo be wldely separaLed ln Llme second lL ls only
when Lhere ls deemed Lo be a necesslLy Lherefor LhaL amendmenLs are Lo be
proposed Lhe reasonable lmpllcaLlon belng LhaL when proposed Lhey are Lo be
consldered and dlsposed of presenLly and Lhlrd raLlflcaLlon ls buL Lhe expresslon of
Lhe approbaLlon of Lhe people hence lL musL be done conLemporaneously
47
ln Lhe
words of !ameson (a)n alLeraLlon of Lhe ConsLlLuLlon proposed Loday has relaLlon
Lo Lhe senLlmenL and Lhe felL needs of Loday and LhaL lf noL raLlfled early whlle
LhaL senLlmenL may falrly be supposed Lo exlsL lL oughL Lo be regarded as walved
and noL agaln Lo be voLed upon unless a second Llme proposed by proper body
ln 8LSuML
1he Lhree lssues are
1 ls Lhe quesLlon of Lhe consLlLuLlonallLy of resldenLlal uecrees nos 991 1031 and
1033 pollLlcal or [usLlclable?
2 uurlng Lhe presenL sLage of Lhe LranslLlon perlod and under Lhe envlronmenLal
clrcumsLances now obLalnlng does Lhe resldenL possess power Lo propose
amendmenLs Lo Lhe ConsLlLuLlon as well as seL up Lhe requlred machlnery and
prescrlbe Lhe procedure for Lhe raLlflcaLlon of hls proposals by Lhe people?
3 ls Lhe submlsslon Lo Lhe people of Lhe proposed amendmenLs wlLhln Lhe Llme
frame allowed Lherefor a sufflclenL and proper submlsslon?
upon Lhe flrsL lssue Chlef !usLlce lred 8ulz CasLro and AssoclaLe !usLlces Lnrlque M
lernando Claudlo 1eehankee AnLonlo 8arredo Cecllla Munoz alma
Permogenes Concepclon !r and 8uperLo C MarLln are of Lhe vlew LhaL Lhe
quesLlon posed ls [usLlclable whlle AssoclaLe !usLlces lellx v Makaslar lellx C
AnLonlo and 8amon C Aqulno hold Lhe vlew LhaL Lhe quesLlon ls pollLlcal
upon Lhe second lssue Chlef !usLlce CasLro and AssoclaLe !usLlces 8arredo
Makaslar AnLonlo Aqulno Concepclon !r and MarLln voLed ln Lhe afflrmaLlve
whlle AssoclaLe !usLlces 1eehankee and Munoz alma voLed ln Lhe negaLlve
AssoclaLe !usLlce lernando conformably Lo hls concurrlng and dlssenLlng oplnlon ln
Aqulno vs Lnrlle (39 SC8A 183) speclflcally dlssenLs from Lhe proposlLlon LhaL Lhere
ls concenLraLlon of powers ln Lhe LxecuLlve durlng perlods of crlsls Lhus ralslng
serlous doubLs as Lo Lhe power of Lhe resldenL Lo propose amendmenLs
upon Lhe Lhlrd lssue Chlef !usLlce CasLro and AssoclaLe !usLlces 8arredo Makaslar
Aqulno Concepclon !r and MarLln are of Lhe vlew LhaL Lhere ls a sufflclenL and
proper submlsslon of Lhe proposed amendmenLs for raLlflcaLlon by Lhe people
AssoclaLe !usLlces 8arredo and Makaslar expressed Lhe hope however LhaL Lhe
perlod of Llme may be exLended AssoclaLe !usLlces lernando Makaslar and
AnLonlo are of Lhe vlew LhaL Lhe quesLlon ls pollLlcal and Lherefore beyond Lhe
compeLence and cognlzance of Lhls CourL AssoclaLe !usLlce lernando adheres Lo hls
concurrence ln Lhe oplnlon of Chlef !usLlce Concepclon ln Conzales vs CCMLLLC (21
SC8A 774)AssoclaLe !usLlces 1eehankee and MunCZ alma hold LhaL presclndlng
from Lhe resldenLs lack of auLhorlLy Lo exerclse Lhe consLlLuenL power Lo propose
Lhe amendmenLs eLc as above sLaLed Lhere ls no falr and proper submlsslon wlLh
8

sufflclenL lnformaLlon and Llme Lo assure lnLelllgenL consenL or re[ecLlon under Lhe
sLandards seL by Lhls CourL ln Lhe conLrolllng cases of Conzales supra and
1olenLlno vs CCMLLLC (41 SC8A 702)
Chlef !usLlce CasLro and AssoclaLe !usLlces 8arredo Makaslar AnLonlo Aqulno
Concepclon !r and MarLln voLed Lo dlsmlss Lhe Lhree peLlLlons aL bar lor reasons
as expressed ln hls separaLe oplnlon AssoclaLe !usLlce lernando concurs ln Lhe
resulL AssoclaLe !usLlces 1eehankee and Munoz alma voLed Lo granL Lhe peLlLlons
ACCC8ulnCL? Lhe voLe belng 8 Lo 2 Lo dlsmlss Lhe sald peLlLlons are hereby
dlsmlssed 1hls declslon ls lmmedlaLely execuLory
SC C8uL8Lu

AUINC VS LNkILL
Gk No L3SS46 September 17 1974

MAkALIN1AL p
1hese cases are all peLlLlons for bobeos cotpos Lhe peLlLloners havlng been arresLed
and deLalned by Lhe mlllLary by vlrLue of Lhe resldenLs roclamaLlon no 1081
daLed SepLember 21 1972
AL Lhe ouLseL a word of clarlflcaLlon ls ln order 1hls ls noL Lhe declslon of Lhe CourL
ln Lhe sense LhaL a declslon represenLs a consensus of Lhe requlred ma[orlLy of lLs
members noL only on Lhe [udgmenL lLself buL also on Lhe raLlonallzaLlon of Lhe
lssues and Lhe concluslons arrlved aL Cn Lhe flnal resulL Lhe voLe ls pracLlcally
unanlmous Lhls ls a sLaLemenL of my lndlvldual oplnlon as well as a summary of Lhe
voLlng on Lhe ma[or lssues Why no parLlcular !usLlce has been deslgnaLed Lo wrlLe
[usL one oplnlon for Lhe enLlre CourL wlll presenLly be explalned
AL one polnL durlng our dellberaLlons on Lhese cases lL was suggesLed LhaL as Chlef
!usLlce l should wrlLe LhaL oplnlon 1he lmpracLlcablllLy of Lhe suggesLlon shorLly
became apparenL for a number of reasons only Lwo of whlch need be menLloned
llrsL Lhe dlscusslons as Lhey began Lo Louch on parLlcular lssues revealed a lack of
agreemenL among Lhe !usLlces as Lo wheLher some of Lhose lssues should be Laken
up alLhough lL was noL necessary Lo do so Lhey belng merely convenlenL for Lhe
purpose of venLllaLlng vexlng quesLlons of publlc lnLeresL or wheLher Lhe declslon
should be llmlLed Lo Lhose lssues whlch are really maLerlal and declslve ln Lhese
cases Slmllarly Lhere was no agreemenL as Lo Lhe manner Lhe lssues should be
LreaLed and developed 1he same desLlnaLlon would be reached so Lo speak buL
Lhrough dlfferenL rouLes and by means of dlfferenL vehlcles of approach 1he
wrlLlng of separaLe oplnlons by lndlvldual !usLlces was Lhus unavoldable and
undersLandably so for sLlll anoLher reason namely LhaL alLhough llLLle overL
reference Lo lL was made aL Lhe Llme Lhe fuLure verdlcL of hlsLory was very much a
facLor ln Lhe Lhlnklng of Lhe members no oLher case of such LranscendenLal
slgnlflcance Lo Lhe llfe of Lhe naLlon havlng before confronLed Lhls CourL Second
and Lhls Lo me was Lhe lnsuperable obsLacle l was and am of Lhe oplnlon whlch
was shared by slx oLher !usLlces
1
aL Lhe Llme Lhe quesLlon was voLed upon LhaL
peLlLloner !ose W uloknos moLlon of uecember 28 1973 Lo wlLhdraw hls peLlLlon
(C8 no L33339) should be granLed and Lherefore l was ln no poslLlon Lo seL
down Lhe rullng of Lhe CourL on each of Lhe argumenLs ralsed by hlm excepL
lndlrecLly lnsofar as Lhey had been ralsed llkewlse ln Lhe oLher cases
lL should be explalned aL Lhls polnL LhaL when Lhe CourL voLed on uloknos moLlon
Lo wlLhdraw hls peLlLlon he was sLlll under deLenLlon wlLhouL charges and
conLlnued Lo remaln so up Lo Lhe Llme Lhe separaLe oplnlons of Lhe lndlvldual
!usLlces were puL ln flnal form preparaLory Lo Lhelr promulgaLlon on SepLember 12
whlch was Lhe lasL day of !usLlce Zaldlvars Lenure ln Lhe CourL
2
8efore Lhey could
be promulgaLed however a ma[or developmenL supervened peLlLloner ulokno
was released by Lhe resldenL ln Lhe mornlng of SepLember 11 1974 ln vlew
Lhereof all Lhe members of Lhls CourL excepL !usLlce CasLro agreed Lo dlsmlss
uloknos peLlLlon on Lhe ground LhaL lL had become mooL wlLh Lhose who orlglnally
voLed Lo granL Lhe moLlon for wlLhdrawal clLlng sald moLlon as an addlLlonal ground
for such dlsmlssal
1he peLlLloners ln Lhe oLher cases excepL 8enlgno Aqulno !r (C8 no L33346)
elLher have been permlLLed Lo wlLhdraw Lhelr peLlLlons or have been released from
deLenLlon sub[ecL Lo cerLaln resLrlcLlons
3
ln Lhe case of Aqulno formal charges of
murder subverslon and lllegal possesslon of flrearms were lodged agalnsL hlm wlLh
a MlllLary Commlsslon on AugusL 11 1973 and on Lhe followlng AugusL 23 he
challenged Lhe [urlsdlcLlon of sald Commlsslon as well as hls conLlnued deLenLlon by
vlrLue of Lhose charges ln a peLlLlon for cettlototl and prohlblLlon flled ln Lhls CourL
(C8 no
L37364) 1he quesLlon came up as Lo wheLher or noL Aqulnos peLlLlon for bobeos
cotpos should be dlsmlssed on Lhe ground LhaL Lhe case as Lo hlm should more
approprlaLely be resolved ln Lhls new peLlLlon Cf Lhe Lwelve !usLlces however
elghL voLed agalnsL such dlsmlssal and chose Lo conslder Lhe case on Lhe merlLs
4

Cn uloknos moLlon Lo wlLhdraw hls peLlLlon l voLed ln favor of granLlng lL for Lwo
reasons ln Lhe flrsL place such wlLhdrawal would noL emasculaLe Lhe declslve and
fundamenLal lssues of publlc lnLeresL LhaL demanded Lo be resolved for Lhey were
also ralsed ln Lhe oLher cases whlch sLlll remalned pendlng Secondly slnce lL was
Lhls peLlLloners personal llberLy LhaL was aL sLake l belleved he had Lhe rlghL Lo
renounce Lhe appllcaLlon for bobeos cotpos he lnlLlaLed Lven lf LhaL rlghL were noL
absoluLe l sLlll would respecL hls cholce Lo remove Lhe case from Lhls CourLs
cognlzance regardless of Lhe facL LhaL l dlsagreed wlLh many of hls reasons for so
dolng l could noL escape a sense of lrony ln Lhls CourLs Lurnlng down Lhe plea Lo
wlLhdraw on Lhe ground so he alleges among oLhers LhaL Lhls ls no longer Lhe
CourL Lo whlch he orlglnally applled for rellef because lLs members have Laken new
oaLhs of offlce under Lhe 1973 ConsLlLuLlon and Lhen rullng adversely Lo hlm on Lhe
merlLs of hls peLlLlon
9

lL ls Lrue LhaL some of Lhe sLaLemenLs ln Lhe moLlon are an affronL Lo Lhe dlgnlLy of
Lhls CourL and Lherefore should noL be allowed Lo pass unanswered Any answer
however would noL be foreclosed by allowlng Lhe wlLhdrawal lor my parL slnce
mosL of Lhose sLaLemenLs are of a sub[ecLlve characLer belng maLLers of personal
bellef and oplnlon l see no polnL ln refuLlng Lhem ln Lhese cases lndeed my
lmpresslon ls LhaL Lhey were beamed less aL Lhls CourL Lhan aL Lhe world ouLslde
and deslgned Lo make pollLlcal caplLal of hls personal slLuaLlon as Lhe publlclLy
glven Lo Lhem by some segmenLs of Lhe forelgn press and by local underground
propaganda news sheeLs subsequenLly conflrmed lL was ln facL from LhaL
perspecLlve LhaL l deemed lL proper Lo respond ln klnd LhaL ls from a non[udlclal
forum ln an address l dellvered on lebruary 19 1974 before Lhe LAWASlA Lhe
hlllpplne 8ar AssoclaLlon and Lhe hlllpplne Lawyers AssoclaLlon !usLlce
1eehankee lL may be sLaLed ls of Lhe oplnlon LhaL a slmple ma[orlLy of seven voLes
ouL of Lwelve ls legally sufflclenL Lo make Lhe wlLhdrawal of uloknos peLlLlon
effecLlve on Lhe Lheory LhaL Lhe requlremenL of a ma[orlLy of elghL voLes applles
only Lo a declslon on Lhe merlLs
ln any evenL as lL Lurned ouL afLer peLlLloner ulokno was released by Lhe resldenL
on SepLember 11 all Lhe members of Lhls CourL excepL !usLlce CasLro were agreed
LhaL hls peLlLlon had become mooL and Lherefore should no longer be consldered
on Lhe merlLs 1hls noLwlLhsLandlng some of Lhe oplnlons of Lhe lndlvldual
members parLlcularly !usLlces CasLro and 1eehankee should be Laken ln Lhe Llme
seLLlng ln whlch Lhey were prepared LhaL ls before Lhe order for Lhe release of
ulokno was lssued
1be coses
1he evenLs whlch form Lhe background of Lhese nlne peLlLlons are relaLed elLher
brlefly or ln greaL deLall ln Lhe separaLe oplnlons flled by Lhe lndlvldual !usLlces 1he
peLlLloners were arresLed and held pursuanL Lo Ceneral Crder no 2 of Lhe
resldenL (SepLember 22 1972) for belng parLlclpanLs or for havlng glven ald and
comforL ln Lhe consplracy Lo selze pollLlcal and sLaLe power ln Lhe counLry and Lo
Lake over Lhe CovernmenL by force
Ceneral Crder no 2 was lssued by Lhe resldenL ln Lhe exerclse of Lhe powers he
assumed by vlrLue of roclamaLlon no 1081 (SepLember 21 1972) placlng Lhe
enLlre counLry under marLlal law 1he porLlons of Lhe proclamaLlon lmmedlaLely ln
polnL read as follows
xxx xxx xxx
nCW 1PL8LlC8L l lL8ulnAnu L MA8CCS resldenL of Lhe hlllpplnes by vlrLue
of Lhe powers vesLed upon me by ArLlcle vll SecLlon 10 aragraph (2) of Lhe
ConsLlLuLlon do hereby place Lhe enLlre hlllpplnes as deflned ln ArLlcle l SecLlon 1
of Lhe ConsLlLuLlon under marLlal law and ln my capaclLy as Lhelr Commanderln
Chlef do hereby command Lhe Armed lorces of Lhe hlllpplnes Lo malnLaln law
and order LhroughouL Lhe hlllpplnes prevenL or suppress all forms of lawless
vlolence as well as any acL of lnsurrecLlon or rebelllon and Lo enforce obedlence Lo
all Lhe laws and decrees orders and regulaLlons promulgaLed by me personally or
upon my dlrecLlon
ln addlLlon l do hereby order LhaL all persons presenLly deLalned as well as all
oLhers who may hereafLer be slmllarly deLalned for Lhe crlmes of lnsurrecLlon or
rebelllon and all oLher crlmes and offenses commlLLed ln furLherance or on Lhe
occaslon Lhereof or lncldenL LhereLo or ln connecLlon LherewlLh for crlmes agalnsL
naLlonal securlLy and Lhe law of naLlons crlmes agalnsL publlc order crlmes
lnvolvlng usurpaLlon of auLhorlLy rank LlLle and lmproper use of names unlforms
and lnslgnla crlmes commlLLed by publlc offlcers and for such oLher crlmes as wlll
be enumeraLed ln orders LhaL l shall subsequenLly promulgaLe as well as crlmes as
a consequence of any vlolaLlon of any decree order or regulaLlon promulgaLed by
me personally or promulgaLed upon my dlrecLlon shall be kepL under deLenLlon
unLll oLherwlse ordered released by me or by my duly deslgnaLed represenLaLlve
1he provlslon of Lhe 1933 ConsLlLuLlon referred Lo ln Lhe proclamaLlon reads Lhe
resldenL shall be commanderlnchlef of all armed forces of Lhe hlllpplnes and
whenever lL becomes necessary he may call ouL such armed forces Lo prevenL or
suppress lawless vlolence lnvaslon lnsurrecLlon or rebelllon ln case of lnvaslon
lnsurrecLlon or rebelllon or lmmlnenL danger Lhereof when Lhe publlc safeLy
requlres lL he may suspend Lhe prlvllege of Lhe wrlL of bobeos cotpos or place Lhe
hlllpplnes or any parL Lhereof under marLlal law
1 1he flrsL ma[or lssue ralsed by Lhe parLles ls wheLher Lhls CourL may lnqulre lnLo
Lhe valldlLy of roclamaLlon no 1081 SLaLed more concreLely ls Lhe exlsLence of
condlLlons clalmed Lo [usLlfy Lhe exerclse of Lhe power Lo declare marLlal law
sub[ecL Lo [udlclal lnqulry? ls Lhe quesLlon pollLlcal or [usLlclable ln characLer?
!usLlces Makaslar AnLonlo Lsguerra lernandez and Aqulno hold LhaL Lhe quesLlon
ls pollLlcal and Lherefore lLs deLermlnaLlon ls beyond Lhe [urlsdlcLlon of Lhls CourL
1he reasons are glven aL lengLh ln Lhe separaLe oplnlons Lhey have respecLlvely
slgned !usLlce lernandez adds LhaL as a member of Lhe ConvenLlon LhaL drafLed Lhe
1973 ConsLlLuLlon he belleves LhaL Lhe ConvenLlon puL an lmptlmotot on Lhe
proposlLlon LhaL Lhe valldlLy of a marLlal law proclamaLlon and lLs conLlnuaLlon ls
pollLlcal and non[usLlclable ln characLer
!usLlce 8arredo on Lhe oLher hand belleves LhaL pollLlcal quesLlons are noL pet
se beyond Lhe CourLs [urlsdlcLlon Lhe [udlclal power vesLed ln lL by Lhe ConsLlLuLlon
belng plenary and allembraclng buL LhaL as a maLLer of pollcy lmpllclL ln Lhe
ConsLlLuLlon lLself Lhe CourL should absLaln from lnLerferlng wlLh Lhe LxecuLlves
roclamaLlon deallng as lL does wlLh naLlonal securlLy for whlch Lhe responslblllLy
ls vesLed by Lhe charLer ln hlm alone 8uL Lhe CourL should acL !usLlce 8arredo
oplnes when lLs absLenLlon from acLlng would resulL ln manlfesL and palpable
Lransgresslon of Lhe ConsLlLuLlon proven by facLs of [udlclal noLlce no recepLlon of
evldence belng conLemplaLed for purposes of such [udlclal acLlon
lL may be noLed LhaL Lhe posLulaLe of non[usLlclablllLy as dlscussed ln Lhose
oplnlons lnvolves dlsparaLe meLhods of approach !usLlce Lsguerra malnLalns LhaL
10

Lhe flndlngs of Lhe resldenL on Lhe exlsLence of Lhe grounds for Lhe declaraLlon of
marLlal law are flnal and concluslve upon Lhe CourLs Pe dlsagrees vehemenLly wlLh
Lhe rullng lnloosooq vs Cotclo 42 SC8A 448 uecember 11 1971 and advocaLes a
reLurn Lo 8otceloo vs 8oket 3 hll 87 (1903) and Mooteoeqto vs costoeJo 91
hll 882 (1932) !usLlce 8arredo for hls parL holds LhaL Lansang need noL be
overLurned lndeed does noL conLrol ln Lhese cases Pe draws a dlsLlncLlon beLween
Lhe power of Lhe resldenL Lo suspend Lhe prlvllege of Lhe wrlL of bobeos cotpos
whlch was Lhe lssue ln Lansang and hls power Lo proclalm marLlal law calllng
aLLenLlon Lo Lhe facL LhaL whlle Lhe 8lll of 8lghLs prohlblLs suspenslon of Lhe
prlvllege excepL ln Lhe lnsLances speclfled Lhereln lL places no such prohlblLlon or
quallflcaLlon wlLh respecL Lo Lhe declaraLlon of marLlal law
!usLlce AnLonlo wlLh whom !usLlces Makaslar lernandez and Aqulno concur flnds
LhaL Lhere ls no dlspuLe as Lo Lhe exlsLence of a sLaLe of rebelllon ln Lhe counLry and
on LhaL premlse emphaslzes Lhe facLor of oecesslty for Lhe exerclse by Lhe resldenL
of hls power under Lhe ConsLlLuLlon Lo declare marLlal law holdlng LhaL Lhe declslon
as Lo wheLher or noL Lhere ls such oecesslty ls wbolly conflded Lo hlm and Lherefore
ls noL sub[ecL Lo [udlclal lnqulry hls responslblllLy belng dlrecLly Lo Lhe people
Arrayed on Lhe slde of [usLlclablllLy are !usLlces CasLro lernando 1eehankee and
Munoz alma 1hey hold LhaL Lhe consLlLuLlonal sufflclency of Lhe proclamaLlon may
be lnqulred lnLo by Lhe CourL and would Lhus apply Lhe prlnclple lald down ln
Lansang alLhough LhaL case refers Lo Lhe power of Lhe resldenL Lo suspend Lhe
prlvllege of Lhe wrlL of bobeos cotpos 1he recognlLlon of [usLlclablllLy accorded Lo
Lhe quesLlon ln Lansang lL should be emphaslzed ls Lhere expressly dlsLlngulshed
from Lhe power of [udlclal revlew ln ordlnary clvll or crlmlnal cases and ls llmlLed Lo
ascerLalnlng merely wheLher he (Lhe resldenL) has gone beyond Lhe consLlLuLlonal
llmlLs of hls [urlsdlcLlon noL Lo exerclse Lhe power vesLed ln hlm or Lo deLermlne
Lhe wlsdom of hls acL 1he LesL ls noL wheLher Lhe resldenLs declslon ls correcL
buL wheLher ln suspendlng Lhe wrlL he dld or dld noL acL otblttotlly Applylng Lhls
LesL Lhe flndlng by Lhe !usLlces [usL menLloned ls LhaL Lhere was no arblLrarlness ln
Lhe resldenLs proclamaLlon of marLlal law pursuanL Lo Lhe 1933 ConsLlLuLlon and l
concur wlLh Lhem ln LhaL flndlng 1he facLual bases for Lhe suspenslon of Lhe
prlvllege of Lhe wrlL of bobeos cotpos pottlcolotly ln regard Lo Lhe exlsLence of a
sLaLe of rebelllon ln Lhe counLry had noL dlsappeared lndeed had been
exacerbaLed as evenLs shorLly before sald proclamaLlon clearly demonsLraLed Cn
Lhls olnL Lhe CourL ls pracLlcally unanlmous !usLlce 1eehankee merely refralned
from dlscusslng lL
lnsofar as my own oplnlon ls concerned Lhe cleavage ln Lhe CourL on Lhe lssue of
[usLlclablllLy ls of noL much more Lhan academlc lnLeresL for purposes of arrlvlng aL
a [udgmenL l am noL unduly exerclsed by Amerlcas declslons on Lhe sub[ecL wrlLLen
ln anoLher age and pollLlcal cllme or by Lheorles of forelgn auLhors ln pollLlcal
sclence 1he presenL sLaLe of marLlal law ln Lhe hlllpplnes ls pecullarly llllplno and
flLs lnLo no LradlLlonal paLLerns or [udlclal precedenLs
ln Lhe flrsL place l am convlnced (as are Lhe oLher !usLlces) wlLhouL need of
recelvlng evldence as ln an ordlnary adversary courL proceedlng LhaL a sLaLe of
rebelllon exlsLed ln Lhe counLry when roclamaLlon no 1081 was lssued lL was a
maLLer of conLemporary hlsLory wlLhln Lhe cognlzance noL only of Lhe courLs buL of
all observanL people resldlng here aL Lhe Llme Many of Lhe facLs and evenLs reclLed
ln deLall ln Lhe dlfferenL Whereases of Lhe proclamaLlon are of common
knowledge 1he sLaLe of rebelllon conLlnues up Lo Lhe presenL 1he argumenL LhaL
whlle armed hosLlllLles go on ln several provlnces ln Mlndanao Lhere are none ln
oLher reglons excepL ln lsolaLed pockeLs ln Luzon and LhaL Lherefore Lhere ls no
need Lo malnLaln marLlal law all over Lhe counLry lgnores Lhe sophlsLlcaLed naLure
and ramlflcaLlons of rebelllon ln a modern seLLlng lL does noL conslsL slmply of
armed clashes beLween organlzed and ldenLlflable groups on flelds of Lhelr own
chooslng lL lncludes subverslon of Lhe mosL subLle klnd necessarlly clandesLlne and
operaLlng preclsely where Lhere ls no acLual flghLlng underground propaganda
Lhrough prlnLed news sheeLs or rumors dlssemlnaLed ln whlspers recrulLmenL of
armed and ldeologlcal adherenLs ralslng of funds procuremenL of arms and
maLerlal flfLhcolumn acLlvlLles lncludlng saboLage and lnLelllgence all Lhese are
parL of Lhe rebelllon whlch by Lhelr naLure are usually conducLed far from Lhe baLLle
fronLs 1hey cannoL be counLeracLed effecLlvely unless recognlzed and dealL wlLh ln
LhaL conLexL
Secondly my vlew whlch colncldes wlLh LhaL of oLher members of Lhe CourL as
sLaLed ln Lhelr oplnlons ls LhaL Lhe quesLlon of valldlLy of roclamaLlon no 1081
has been foreclosed by Lhe LranslLory provlslon of Lhe 1973 ConsLlLuLlon ArL xvll
Sec 3(2) LhaL all proclamaLlons orders decrees lnsLrucLlons and acLs
promulgaLed lssued or done by Lhe lncumbenL resldenL shall be parL of Lhe law of
Lhe land and shall remaln valld legal blndlng and effecLlve even afLer Lhe
raLlflcaLlon of Lhls ConsLlLuLlon 1o be sure Lhere ls an aLLempL ln Lhese cases Lo
resusclLaLe Lhe lssue of Lhe effecLlvlLy of Lhe new ConsLlLuLlon All LhaL however ls
behlnd us now 1he quesLlon has been lald Lo resL by our declslon ln Iovellooo vs
xecotlve 5ectetoty (L36142 30 SC8A 30 March 31 1973) and of course by Lhe
exlsLlng pollLlcal reallLles boLh ln Lhe conducL of naLlonal affalrs and ln our relaLlons
wlLh oLher counLrles
Cn Lhe effecL of Lhe LranslLory provlslon !usLlce Munoz alma wlLhholds her assenL
Lo any sweeplng sLaLemenL LhaL Lhe same ln effecL valldaLed ln Lhe consLlLuLlonal
sense all such proclamaLlons decrees lnsLrucLlons and acLs promulgaLed lssued
or done by Lhe lncumbenL resldenL All LhaL she concedes ls LhaL Lhe LranslLory
provlslon merely glves Lhem Lhe lmptlmotot of a law buL noL of a consLlLuLlonal
mandaLe and as such Lherefore are sub[ecL Lo [udlclal revlew when proper under
Lhe ConsLlLuLlon
llnally Lhe pollLlcalor[usLlclable quesLlon conLroversy lndeed any lnqulry by Lhls
CourL ln Lhe presenL cases lnLo Lhe consLlLuLlonal sufflclency of Lhe facLual bases for
Lhe proclamaLlon of marLlal law has become mooL and purposeless as a
11

consequence of Lhe general referendum of !uly 2728 1973 1he quesLlon
propounded Lo Lhe voLers was under Lhe (1973) ConsLlLuLlon Lhe resldenL lf he
so deslres can conLlnue ln offlce beyond 1973 uo you wanL resldenL Marcos Lo
conLlnue beyond 1973 and flnlsh Lhe reforms he lnlLlaLed under MarLlal Law? 1he
overwhelmlng ma[orlLy of Lhose who casL Lhelr balloLs lncludlng clLlzens beLween
13 and 18 years voLed afflrmaLlvely on Lhe proposal 1he quesLlon was Lhereby
removed from Lhe area of presldenLlal power under Lhe ConsLlLuLlon and
Lransferred Lo Lhe seaL of soverelgnLy lLself WhaLever may be Lhe naLure of Lhe
exerclse of LhaL power by Lhe resldenL ln Lhe beglnnlng wheLher or noL purely
pollLlcal and Lherefore non[usLlclable Lhls CourL ls precluded from applylng lLs
[udlclal yardsLlck Lo Lhe acL of Lhe soverelgn
2 WlLh respecL Lo Lhe peLlLloners who have been released from deLenLlon buL have
noL wlLhdrawn Lhelr peLlLlons because Lhey are sLlll sub[ecL Lo cerLaln
resLrlcLlons
S
Lhe rullng of Lhe CourL ls LhaL Lhe peLlLlons should be dlsmlssed 1he
power Lo deLaln persons even wlLhouL charges for acLs relaLed Lo Lhe slLuaLlon
whlch [usLlfles Lhe proclamaLlon of marLlal law such as Lhe exlsLence of a sLaLe of
rebelllon necessarlly lmplles Lhe power (sub[ecL ln Lhe oplnlon of Lhe !usLlces who
conslder Lansang appllcable Lo Lhe same LesL of arblLrarlness lald down Lhereln) Lo
lmpose upon Lhe released deLalnees condlLlons or resLrlcLlons whlch are germane
Lo and necessary Lo carry ouL Lhe purposes of Lhe proclamaLlon !usLlce lernando
however ls for easlng Lhe resLrlcLlons on Lhe rlghL Lo Lravel of peLlLloner 8odrlgo
and oLhers slmllarly slLuaLed and so Lo Lhls exLenL dlssenLs from Lhe rullng of Lhe
ma[orlLy whlle !usLlce 1eehankee belleves LhaL Lhose resLrlcLlons do noL consLlLuLe
deprlvaLlon of physlcal llberLy wlLhln Lhe meanlng of Lhe consLlLuLlonal provlslon on
Lhe prlvllege of Lhe wrlL of bobeos cotpos
lL need only be added LhaL Lo my mlnd lmpllclL ln a sLaLe of marLlal law ls Lhe
suspenslon of Lhe sald prlvllege wlLh respecL Lo persons arresLed or deLalned for
acLs relaLed Lo Lhe baslc ob[ecLlve of Lhe proclamaLlon whlch ls Lo suppress
lnvaslon lnsurrecLlon or rebelllon or Lo safeguard publlc safeLy agalnsL lmmlnenL
danger Lhereof 1he preservaLlon of socleLy and naLlonal survlval Lake precedence
Cn Lhls parLlcular polnL LhaL ls LhaL Lhe proclamaLlon of marLlal law auLomaLlcally
suspends Lhe prlvllege of Lhe wrlL as Lo Lhe persons referred Lo Lhe CourL ls
pracLlcally unanlmous !usLlce lernando however says LhaL Lo hlm LhaL ls sLlll an
open quesLlon and !usLlce Munoz alma quallfledly dlssenLs from Lhe ma[orlLy ln
her separaLe oplnlon buL for Lhe reasons she dlscusses Lhereln voLes for Lhe
dlsmlssal of Lhe peLlLlons



MIkASCL VS CA
Gk No 128448 Iebruary 1 2001
UISUM8ING
1hls ls a peLlLlon for revlew on cerLlorarl of Lhe declslon of Lhe CourL of Appeals
daLed !uly 22 1996 ln CAC8 C? no 38607 as well as of lLs resoluLlon of !anuary
23 1997 denylng peLlLloners moLlon for reconslderaLlon 1he challenged declslon
reversed Lhe [udgmenL of Lhe 8eglonal 1rlal CourL of 8acolod ClLy 8ranch 42 ln Clvll
Case no 14723
1he facLual background of Lhls case as gleaned from Lhe records ls as follows
1he Mlrasols are sugarland owners and planLers ln 19731974 Lhey produced
7030108 plculs
1
of sugar 2366236 of whlch were asslgned for exporL 1he
followlng crop year Lhelr acreage planLed Lo Lhe same crop was lower yleldlng
63100 plculs of sugar wlLh 2369640 plculs marked for exporL
rlvaLe respondenL hlllpplne naLlonal 8ank (n8) flnanced Lhe Mlrasols sugar
producLlon venLure for crop years 19731974 and 19741973 under a crop loan
flnanclng scheme under sald scheme Lhe Mlrasols slgned CredlL AgreemenLs a
ChaLLel MorLgage on SLandlng Crops and a 8eal LsLaLe MorLgage ln favor of n8
1he ChaLLel MorLgage empowered n8 as Lhe peLlLloners aLLorneylnfacL Lo
negoLlaLe and Lo sell Lhe laLLers sugar ln boLh domesLlc and exporL markeLs and Lo
apply Lhe proceeds Lo Lhe paymenL of Lhelr obllgaLlons Lo lL
Lxerclslng hls lawmaklng powers under MarLlal Law Lhen resldenL lerdlnand
Marcos lssued resldenLlal uecree (u) no 3792 ln november 1974 1he decree
auLhorlzed prlvaLe respondenL hlllpplne Lxchange Co lnc (PlLLx) Lo purchase
sugar allocaLed for exporL Lo Lhe unlLed SLaLes and Lo oLher forelgn markeLs 1he
prlce and quanLlLy was deLermlned by Lhe Sugar CuoLa AdmlnlsLraLlon n8 Lhe
ueparLmenL of 1rade and lndusLry and flnally by Lhe Cfflce of Lhe resldenL 1he
decree furLher auLhorlzed n8 Lo flnance PlLLxs purchases llnally Lhe decree
dlrecLed LhaL whaLever proflL PlLLx mlghL reallze from sales of sugar abroad was
Lo be remlLLed Lo a speclal fund of Lhe naLlonal governmenL afLer commlsslons
overhead expenses and llablllLles had been deducLed 1he governmenL offlces and
enLlLles Lasked by exlsLlng laws and admlnlsLraLlve regulaLlons Lo oversee Lhe sugar
exporL pegged Lhe purchase prlce of exporL sugar ln crop years 19731974 and
19741973 aL 18000 per plcul
n8 conLlnued Lo flnance Lhe sugar producLlon of Lhe Mlrasols for crop years 1973
1976 and 19761977 1hese crop loans and slmllar obllgaLlons were secured by real
esLaLe morLgages over several properLles of Lhe Mlrasols and chaLLel morLgages
over sLandlng crops 8ellevlng LhaL Lhe proceeds of Lhelr sugar sales Lo n8 lf
properly accounLed for were more Lhan enough Lo pay Lhelr obllgaLlons
peLlLloners asked n8 for an accounLlng of Lhe proceeds of Lhe sale of Lhelr exporL
sugar n8 lgnored Lhe requesL Meanwhlle peLlLloners conLlnued Lo avall of oLher
loans from n8 and Lo make unfunded wlLhdrawals from Lhelr currenL accounLs
wlLh sald bank n8 Lhen asked peLlLloners Lo seLLle Lhelr due and demandable
accounLs As a resulL of Lhese demands for paymenL peLlLloners on AugusL 4 1977
conveyed Lo n8 real properLles valued aL 141046600 by way of Jocloo eo poqo
leavlng an unpald overdrawn accounL of 131334778
12

Cn AugusL 10 1982 Lhe balance of ouLsLandlng sugar crop and oLher loans owed by
peLlLloners Lo n8 sLood aL 1396423293 uesplLe demands Lhe Mlrasols falled
Lo seLLle sald due anLl demandable accounLs n8 Lhen proceeded Lo exLra[udlclally
for close Lhe morLgaged properLles AfLer applylng Lhe proceeds of Lhe aucLlon sale
of Lhe morLgaged realLles n8 sLlll had a deflclency clalm of 1233123293
eLlLloners conLlnued Lo ask n8 Lo accounL for Lhe proceeds of Lhe sale of Lhelr
exporL sugar for crop years 19731974 and 19741973 lnslsLlng LhaL sald proceeds
lf properly llquldaLed could offseL Lhelr ouLsLandlng obllgaLlons wlLh Lhe baLlk n8
remalned adamanL ln lLs sLance LhaL under u no 379 Lhere was noLhlng Lo
accounL slnce under sald law all earnlngs from Lhe exporL sales of sugar perLalned
Lo Lhe naLlonal CovernmenL and were sub[ecL Lo Lhe dlsposlLlon of Lhe resldenL of
Lhe hlllpplnes for publlc purposes1wpbl1ot
Cn AugusL 9 1979 Lhe Mlrasols flled a sulL for accounLlng speclflc performance
and damages agalnsL n8 wlLh Lhe 8eglonal 1rlal CourL of 8acolod ClLy dockeLed as
Clvll Case no 14723
Cn !une 16 1987 Lhe complalnL was amended Lo lmplead PlLLx as parLy
defendanL
1he parLles agreed aL preLrlal Lo llmlL Lhe lssues Lo Lhe followlng
1 1he consLlLuLlonallLy and/or legallLy of resldenLlal uecrees numbered 338 379
and 1192
2 1he deLermlnaLlon of Lhe LoLal amounL allegedly due Lhe plalnLlffs from Lhe
defendanLs correspondlng Lo Lhe allege(d) unllquldaLed cosL prlce of exporL sugar
durlng crop years 19731974 and 19741973
3

AfLer Lrlal on Lhe merlLs Lhe Lrlal courL declded as follows
WPL8LlC8L Lhe foregolng premlses consldered [udgmenL ls hereby rendered ln
favor of Lhe plalnLlffs and agalnsL Lhe defendanLs hlllpplne naLlonal 8ank (n8)
and hlllpplne Lxchange Co lnc (PlLLx)
(1) ueclarlng resldenLlal uecree 379 enacLed on november 12 1974 and all
clrculars as well as pollcles orders and oLher lssuances lssued ln furLherance
Lhereof unconsLlLuLlonal and Lherefore nuLL and vClu belng ln gross vlolaLlon of
Lhe 8lll of 8lghLs
(2) Crderlng defendanLs n8 and PlLLx Lo pay [olnLly and severally plalnLlffs Lhe
whole amounL correspondlng Lo Lhe resldue of Lhe unllquldaLed acLual cosL prlce of
23662 plculs ln exporL sugar for crop year 19731974 aL an average prlce of
30000 per plcul deducLlng Lherefrom however Lhe amounL of 18000 already
pald ln advance plus Lhe allowable deducLlons ln servlce fees and oLher charges
(3) And also for Lhe same defendanLs Lo pay [olnLly and severally same plalnLlffs
Lhe whole amounL correspondlng Lo Lhe unpald acLual prlce of 14396 plculs of
exporL sugar for crop year 19741973 aL an average raLe of 21414 per plcul mlnus
however Lhe sum of 18000 per plcul already pald by Lhe defendanLs ln advance
and Lhe allowable deducLlng (slc) ln servlce fees and oLher charges
1he unllquldaLed amounL of money due Lhe plalnLlffs buL wlLhheld by Lhe
defendanLs shall earn Lhe legal raLe of lnLeresL aL 12 per annum compuLed from
Lhe daLe Lhls acLlon was lnsLlLuLed unLll fully pald and flnally
(4) ulrecLlng Lhe defendanLs n8 and PlLLx Lo pay [olnLly and severally plalnLlffs
Lhe sum of 3000000 ln moral damages and Lhe amounL of 3000000 as
aLLorneys fees plus Lhe cosLs of Lhls llLlgaLlon
SC C8uL8Lu
4

1he same was however modlfled by a 8esoluLlon of Lhe Lrlal courL daLed May 14
1992 whlch added Lhe followlng paragraph
1hls however whaLever beneflLs LhaL may have accrued ln favor of Lhe plalnLlffs
wlLh Lhe massage and approval of 8epubllc AcL 7202 oLherwlse known as Lhe Sugar
8esLlLuLlon Law auLhorlzlng Lhe resLlLuLlon of losses suffered by Lhe plalnLlffs from
Crop year 19741973 Lo Crop year 19841983 occasloned by Lhe acLuaLlons of
governmenLowned and conLrolled agencles (underscorlng ln Lhe orlglnal)
SC C8uL8Lu
3

1he Mlrasols Lhen flled an appeal wlLh Lhe respondenL courL dockeLed as CAC8
C? no 38607 faulLlng Lhe Lrlal courL for noL nulllfylng Lhe Jocloo eo poqo and Lhe
morLgage conLracLs as well as Lhe foreclosure of Lhelr morLgaged properLles Also
faulLed was Lhe Lrlal courLs fallure Lo award Lhem Lhe full money clalms and
damages soughL from boLh n8 and PlLLx
Cn !uly 22 1996 Lhe CourL of Appeals reversed Lhe Lrlal courL as follows
WPL8LlC8L Lhls CourL renders [udgmenL 8LvL8SlnC Lhe appealed ueclslon and
enLerlng Lhe followlng verdlcL
1 ueclarlng Lhe Jocloo eo poqo and Lhe foreclosure of Lhe morLgaged properLles
valld
2 Crderlng Lhe n8 Lo render an accounLlng of Lhe sugar accounL of Lhe Mlrasols
speclflcally sLaLlng Lhe lndebLedness of Lhe laLLer Lo Lhe former and Lhe proceeds of
Mlrasols 19731974 and 19741973 sugar producLlon sold pursuanL Lo and ln
accordance wlLh u 379 and Lhe lssuances Lherefrom
3 Crderlng Lhe n8 Lo recompuLe ln accordance wlLh 8A 7202 Mlrasols
lndebLedness Lo lL credlLlng Lo Lhe laLLer paymenLs already made as well as Lhe
aucLlon prlce of Lhelr foreclosed real esLaLe and sLlpulaLed value of Lhelr properLles
ceded Lo n8 ln Lhe Jocoo (slc) eo poqo
4 WhaLever Lhe resulL of Lhe recompuLaLlon of Mlrasols accounL Lhe ouLsLandlng
balance or Lhe excess paymenL shall be governed by Lhe perLlnenL provlslons of 8A
7202
SC C8uL8Lu
6

Cn AugusL 28 1996 peLlLloners moved for reconslderaLlon whlch Lhe appellaLe
courL denled on !anuary 23 1997
Pence Lhe lnsLanL peLlLlon wlLh peLlLloners submlLLlng Lhe followlng lssues for our
resoluLlon
13

1 WheLher Lhe 1rlal CourL has [urlsdlcLlon Lo declare a sLaLuLe unconsLlLuLlonal
wlLhouL noLlce Lo Lhe SollclLor Ceneral where Lhe parLles have agreed Lo submlL
such lssue for Lhe resoluLlon of Lhe 1rlal CourL
2 WheLher u 379 and subsequenL lssuances
7
Lhereof are unconsLlLuLlonal
3 WheLher Lhe Ponorable CourL of Appeals commlLLed manlfesL error ln noL
applylng Lhe docLrlne of plerclng Lhe corporaLe vell beLween respondenLs n8 and
PlLLx
4 WheLher Lhe Ponorable CourL of Appeals commlLLed manlfesL error ln upholdlng
Lhe valldlLy of Lhe foreclosure on peLlLloners properLy and ln upholdlng Lhe valldlLy
of Lhe Jocloo eo poqo ln Lhls case
3 WheLher Lhe Ponorable CourL of Appeals commlLLed manlfesL error ln noL
awardlng damages Lo peLlLloners grounds relled upon Lhe allowance of Lhe peLlLlon
(underscored ln Lhe orlglnal)
8

Cn Lhe fltst lssoe lL ls seLLled LhaL 8eglonal 1rlal CourLs have Lhe auLhorlLy and
[urlsdlcLlon Lo conslder Lhe consLlLuLlonallLy of a sLaLuLe presldenLlal decree or
execuLlve order
9
1he ConsLlLuLlon vesLs Lhe power of [udlclal revlew or Lhe power
Lo declare a law LreaLy lnLernaLlonal or execuLlve agreemenL presldenLlal decree
order lnsLrucLlon ordlnance or regulaLlon noL only ln Lhls CourL buL ln all 8eglonal
1rlal CourLs
10
ln IM 1oosoo ooJ co v coott of Appeols 3 5ckA 696 (1961) we
held
lalnly Lhe ConsLlLuLlon conLemplaLes LhaL Lhe lnferlor courLs should have
[urlsdlcLlon ln cases lnvolvlng consLlLuLlonallLy of any LreaLy or law for lL speaks of
appellaLe revlew of flnal [udgmenLs of lnferlor courLs ln cases where such
consLlLuLlonallLy happens Lo be ln lssue
11

lurLhermore 8 8lg 129 granLs 8eglonal 1rlal CourLs Lhe auLhorlLy Lo rule on Lhe
conformlLy of laws or LreaLles wlLh Lhe ConsLlLuLlon Lhus
SLC1lCn 19 IotlsJlctloo lo clvll coses 8eglonal 1rlal CourLs shall exerclse
excluslve orlglnal [urlsdlcLlon
(1) ln all clvll acLlons ln whlch Lhe sub[ecL of Lhe llLlgaLlons ls lncapable of pecunlary
esLlmaLlon
1he plvoLal lssue whlch we musL address ls wheLher lL was proper for Lhe Lrlal
courL Lo have exerclsed [udlclal revlew
eLlLloners argue LhaL Lhe CourL of Appeals erred ln flndlng LhaL lL was lmproper for
Lhe Lrlal courL Lo have declared u no 37912 unconsLlLuLlonal slnce peLlLloners
had noL complled wlLh 8ule 64 SecLlon 3 of Lhe 8ules of CourL eLlLloners conLend
LhaL sald 8ule speclflcally refers only Lo acLlons for declaraLory rellef and noL Lo an
ordlnary acLlon for accounLlng speclflc performance and damages
eLlLloners conLenLlons are berefL of merlL 8ule 64 SecLlon 3 of Lhe 8ules of CourL
provldes
SLC 3 Notlce to 5ollcltot Ceoetol ln any acLlon whlch lnvolves Lhe valldlLy of a
sLaLuLe or execuLlve order or regulaLlon Lhe SollclLor Ceneral shall be noLlfled by
Lhe parLy aLLacklng Lhe sLaLuLe execuLlve order or regulaLlon and shall be enLlLled
Lo be heard upon such quesLlon
1hls should be read ln relaLlon Lo SecLlon 1 c of u no 478
13
whlch sLaLes ln
parL
SLC1lCn 1 looctloos ooJ Otqoolzotloos (1) 1he Cfflce of Lhe SollclLor Ceneral
shallhave Lhe followlng speclflc powers and funcLlons
xxx
c Appear ln any courL ln any acLlon lnvolvlng Lhe valldlLy of any LreaLy law
execuLlve order or proclamaLlon rule or regulaLlon when ln hls [udgmenL hls
lnLervenLlon ls necessary or when requesLed by Lhe courL
lL ls baslc legal consLrucLlon LhaL where words of command such as shall musL
or oughL are employed Lhey are generally and ordlnarlly regarded as
mandaLory
14
1hus where as ln 8ule 64 SecLlon 3 of Lhe 8ules of CourL Lhe word
shall ls used a mandaLory duLy ls lmposed whlch Lhe courLs oughL Lo enforce
1he purpose of Lhe mandaLory noLlce ln 8ule 64 SecLlon 3 ls Lo enable Lhe SollclLor
Ceneral Lo declde wheLher or noL hls lnLervenLlon ln Lhe acLlon assalllng Lhe valldlLy
of a law or LreaLy ls necessary 1o deny Lhe SollclLor Ceneral such noLlce would be
LanLamounL Lo deprlvlng hlm of hls day ln courL We musL sLress LhaL conLrary Lo
peLlLloners sLand Lhe mandaLory noLlce requlremenL ls noL llmlLed Lo acLlons
lnvolvlng declaraLory rellef and slmllar remedles 1he rule lLself provldes LhaL such
noLlce ls requlred ln any acLlon and noL [usL acLlons lnvolvlng declaraLory rellef
Where Lhere ls no amblgulLy ln Lhe words used ln Lhe Lrue Lhere ls no room for
consLnlcLlon
13
ln all acLlons assalllng Lhe valldlLy of a sLaLuLe LreaLy presldenLlal
decree order or proclamaLlon noLlce Lo Lhe SollclLor Ceneral ls mandaLory
ln Lhls case Lhe SollclLor Ceneral was never noLlfled abouL Clvll Case no 14723 nor
dld Lhe Lrlal courL ever requlre hlm Lo appear ln person or by a represenLaLlve or Lo
flle any pleadlng or memorandum on Lhe consLlLuLlonallLy of Lhe assalled decree
Pence Lhe CourL of Appeals dld noL err ln holdlng LhaL lack of Lhe requlred noLlce
made lL lmproper for Lhe Lrlal courL Lo pass upon Lhe consLlLuLlonal valldlLy of Lhe
quesLloned presldenLlal decrees
As regards Lhe secooJ lssoe peLlLloners conLend LhaL u no 379 and lLs
lmplemenLlng lssuances are vold for vlolaLlng Lhe due process clause and Lhe
prohlblLlon agalnsL Lhe Laklng of prlvaLe properLy wlLhouL [usL compensaLlon
eLlLloners now ask Lhls CourL Lo exerclse lLs power of [udlclal revlew
!urlsprudence has lald down Lhe followlng requlslLes for Lhe exerclse of Lhls power
llrsL Lhere musL be before Lhe CourL an acLual case calllng for Lhe exerclse of
[udlclal revlew Second Lhe quesLlon before Lhe CourL musL be rlpe for ad[udlcaLlon
1hlrd Lhe person challenglng Lhe valldlLy of Lhe acL musL have sLandlng Lo
challenge lourLh Lhe quesLlon of consLlLuLlonallLy musL have been ralsed aL Lhe
earllesL opporLunlLy and lasLly Lhe lssue of consLlLuLlonallLy musL be Lhe very lls
moto of Lhe case
16

14

As a rule Lhe courLs wlll noL resolve Lhe consLlLuLlonallLy of a law lf Lhe conLroversy
can be seLLled on oLher grounds
17
1he pollcy of Lhe courLs ls Lo avold rullng on
consLlLuLlonal quesLlons and Lo presume LhaL Lhe acLs of Lhe pollLlcal deparLmenLs
are valld absenL a clear and unmlsLakable showlng Lo Lhe conLrary 1o doubL ls Lo
susLaln 1hls presumpLlon ls based on Lhe docLrlne of separaLlon of powers 1hls
means LhaL Lhe measure had flrsL been carefully sLudled by Lhe leglslaLlve and
execuLlve deparLmenLs and found Lo be ln accord wlLh Lhe ConsLlLuLlon before lL
was flnally enacLed and approved
18

1he presenL case was lnsLlLuLed prlmarlly for accounLlng and speclflc performance
1he CourL of Appeals correcLly ruled LhaL n8s obllgaLlon Lo render an accounLlng
ls an lssue whlch can be deLermlned wlLhouL havlng Lo rule on Lhe consLlLuLlonallLy
of u no 379 ln facL Lhere ls noLhlng ln u no 379 whlch ls appllcable Lo n8s
lnLranslgence ln refuslng Lo glve an accounLlng 1he governlng law should be Lhe
law on agency lL belng undlspuLed LhaL n8 acLed as peLlLloners agenL ln oLher
words Lhe requlslLe LhaL Lhe consLlLuLlonallLy of Lhe law ln quesLlon be Lhe very lls
moto of Lhe case ls absenL 1hus we cannoL rule on Lhe consLlLuLlonallLy of u no
379
eLlLloners furLher conLend LhaL Lhe passage of 8A no 720219 rendered u no
379 unconsLlLuLlonal slnce 8A no 7202 afflrms LhaL under u 379 Lhe due
process clause of Lhe ConsLlLuLlon and Lhe rlghL of Lhe sugar planLers noL Lo be
deprlved of Lhelr properLy wlLhouL [usL compensaLlon were vlolaLed
A perusal of Lhe LexL of 8A no 7202 shows LhaL Lhe repeallng clause of sald law
merely reads
SLC 10 All laws acLs execuLlve orders and clrculars ln confllcL herewlLh are
hereby repealed or modlfled accordlngly
1he seLLled rule of sLaLuLory consLrucLlon ls LhaL repeals by lmpllcaLlon are noL
favored
20
8A no 7202 cannoL be deemed Lo have repealed u no 379 ln
addlLlon Lhe power Lo declare a law unconsLlLuLlonal does noL lle wlLh Lhe
leglslaLure buL wlLh Lhe courLs
21
Assumlng otqoeoJo LhaL 8A no 7202 dld lndeed
repeal u no 379 sald repeal ls noL a leglslaLlve declaraLlon flndlng Lhe earller law
unconsLlLuLlonal
1o resolve Lhe tbltJ lssoe peLlLloners ask us Lo apply Lhe docLrlne of plerclng Lhe
vell of corporaLe flcLlon wlLh respecL Lo n8 and PlLLx eLlLloners submlL LhaL
PlLLx was a whollyowned subsldlary of n8 prlor Lo Lhe laLLers prlvaLlzaLlon
We noLe however LhaL Lhe appellaLe courL made Lhe followlng flndlng of facL
1 n8 and PlLLx are separaLe [urldlcal persons and Lhere ls no reason Lo plerce
Lhe vell of corporaLe personallLy 8oLh exlsLed by vlrLue of separaLe organlc acLs
1hey had separaLe operaLlons and dlfferenL purposes and powers
22

llndlngs of facL by Lhe CourL of Appeals are concluslve and blndlng upon Lhls CourL
unless sald flndlngs are noL supporLed by Lhe evldence
23
Cur [urlsdlcLlon ln a
peLlLlon for revlew under 8ule 43 of Lhe 8ules of CourL ls llmlLed only Lo revlewlng
quesLlons of law and facLual lssues are noL wlLhln lLs provlnce
24
ln vlew of Lhe
aforequoLed flndlng of facL no manlfesL error ls chargeable Lo Lhe respondenL courL
for refuslng Lo plerce Lhe vell of corporaLe flcLlon
Cn Lhe foottb lssoe Lhe appellaLe courL found LhaL Lhere were Lwo seLs of accounLs
beLween peLlLloners and n8 namely
1 1he accounLs relaLlve Lo Lhe loan flnanclng scheme enLered lnLo by Lhe Mlrasols
wlLh n8 (n8s 8rlef p 16) Cn Lhe quesLlon of haw much Lhe n8 lenL Lhe
Mlrasols for crop years 19731974 and 19741973 Lhe evldence reclLed by Lhe
lower courL ln lLs declslon was deflclenL We are offered (slc) n8 Lhe amounL of
lll1LLn MlLLlCn nlnL Punu8Lu Slx1? lCu8 1PCuSAnu 1WC Punu8Lu lll1?
1WC LSCS and nlnL1? 1P8LL CenLavos (s1396423293) buL Lhls ls Lhe alleged
balance Lhe Mlrasols owe n8 coverlng Lhe years 1973 Lo 1982
2 1he accounL relaLlve Lo Lhe Mlrasols currenL accounL numbers 3186 and 3177
lnvolvlng Lhe amounL of 1P8LL MlLLlCn lCu8 Punu8Lu 1PCuSAnu esos
(340000000) n8 clalms agalnsL Lhe Mlrasols (n8s 8rlef p 17)
ln regard Lo Lhe flrsL seL of accounLs besldes Lhe proceeds from n8s sale of sugar
(lnvolvlng Lhe defendanL PlLLx ln relaLlon Lo Lhe exporL porLlon of Llle sLock) Lhe
n8 foreclosed Lhe Mlrasols morLgaged properLles reallzlng Lherefrom ln 1981
1P8LL MlLLlCn lCu8 Punu8Lu 1Pl81LLn 1PCuSAnu pesos (341300000) Lhe
n8 lLself havlng acqulred Lhe properLles as Lhe hlghesL bldder
As Lo Lhe second seL of accounLs n8 proposed and Lhe Mlrasols accepLed a
Jocloo eo poqo scheme by whlch Lhe Mlrasols conveyed Lo n8 pleces of properLy
valued aL CnL MlLLlCn lCu8 Punu8Lu 1Ln 1PCuSAnu lCu8 Punu8Lu Slx1?Slx
esos (s141046600) (n8s 8rlef pp 1617)
23

eLlLloners now clalm LhaL Lhe Jocloo eo poqo and Lhe foreclosure of Lhelr
morLgaged properLles were vold for wanL of conslderaLlon eLlLloners lnslsL LhaL
Lhe loans granLed Lhem by n8 from 1973 Lo 1982 had been fully pald by vlrLue of
legal compensaLlon Pence Lhe foreclosure was lnvalld and of no effecL slnce Lhe
morLgages were already fully dlscharged lL ls also averred LhaL Lhey agreed Lo Lhe
Jocloo only by vlrLue of a marLlal law ArresL Search and Selzure Crder (ASSC)
We flnd peLlLloners argumenLs unpersuaslve 8oLh Lhe lower courL and Lhe
appellaLe courL found LhaL Lhe Mlrasols admlLLed LhaL Lhey were lndebLed Lo n8 ln
Lhe sum sLaLed ln Lhe laLLers counLerclalm
26
eLlLloners noneLheless lnslsL LhaL Lhe
same can be offseL by Lhe unllquldaLed amounLs owed Lhem by n8 for crop years
197374 and 197473 eLlLloners argumenL has no basls ln law lor legal
compensaLlon Lo Lake place Lhe requlremenLs seL forLh ln ArLlcles 1278 and 1279 of
Lhe Clvll Code musL be presenL Sald arLlcles read as follows
ArL 1278 CompensaLlon shall Lake place when Lwo persons ln Lhelr own rlghL are
credlLors and debLors of each oLher
ArL 1279 ln order LhaL compensaLlon may be proper lL ls necessary
(1) 1haL each one of Lhe obllgors be bound prlnclpally and LhaL he be aL Lhe same
Llme a prlnclpal credlLor of Lhe oLher
13

(2) 1haL boLh debLs conslsL ln a sum of money or lf Lhe Lhlngs due are consumable
Lhey be of Lhe same klnd and also of Lhe same quallLy lf Lhe laLLer has been sLaLed
(3) 1haL Lhe Lwo debLs are due
(4) 1haL Lhey be llquldaLed and demandable
(3) 1haL over nelLher of Lhem Lhere be any reLenLlon or conLroversy commenced by
Lhlrd persons and communlcaLed ln due Llme Lo Lhe debLor
ln Lhe presenL case seLoff or compensaLlon cannoL Lake place beLween Lhe parLles
because llrsL nelLher of Lhe parLles are muLually credlLors and debLors of each
oLher under u no 379 nelLher n8 nor PlLLx could reLaln any dlfference
clalmed by Lhe Mlrasols ln Lhe prlce of sugar sold by Lhe Lwo flrms u no 379
prescrlbed where Lhe proflLs from Lhe sales are Lo be pald Lo wlL
SLC1lCn 7 x x x AfLer deducLlng lLs commlsslon of Lwo and onehalf (21/2)
percenL of gross sales Lhe balance of Lhe proceeds of sugar Lradlng operaLlons for
every crop year shall be seL aslde by Lhe hlllpplne Lxchange Company lnc as
proflLs whlch shall be pald Lo a speclal fund of Lhe naLlonal CovernmenL sub[ecL Lo
Lhe dlsposlLlon of Lhe resldenL for publlc purposes
1hus as correcLly found by Lhe CourL of Appeals Lhere was noLhlng wlLh whlch
n8 was supposed Lo have offseL Mlrasols admlLLed lndebLedness
27

Second compensaLlon cannoL Lake place where one clalm as ln Lhe lnsLanL case ls
sLlll Lhe sub[ecL of llLlgaLlon as Lhe same cannoL be deemed llquldaLed
28

WlLh respecL Lo Lhe duress allegedly employed by n8 whlch lmpugned peLlLloners
consenL Lo Lhe Jocloo eo poqo boLh Lhe Lrlal courL and Lhe CourL of Appeals found
LhaL Lhere was no evldence Lo supporL sald clalm lacLual flndlngs of Lhe Lrlal courL
afflrmed by Lhe appellaLe courL are concluslve upon Lhls CourL
29

Cn Lhe flftb lssoe Lhe Lrlal courL awarded peLlLloners 3000000 ln moral damages
and 3000000 ln aLLorneys fees eLlLloners now Lheorlze LhaL lL was error for Lhe
CourL of Appeals Lo have deleLed Lhese awards conslderlng LhaL Lhe appellaLe courL
found n8 breached lLs duLy as an agenL Lo render an accounLlng Lo peLlLloners
An agenLs fallure Lo render an accounLlng Lo hls prlnclpal ls conLrary Lo ArLlcle 1891
of Lhe Clvll Code
30
1he errlng agenL ls llable for damages under ArLlcle 1170 of Lhe
Clvll Code whlch sLaLes
1hose who ln Lhe performance of Lhelr obllgaLlons are gullLy of fraud negllgence
or delay and Lhose who ln any manner conLravene Lhe Lenor Lhereof are llable for
damages
ArLlcle 1170 of Lhe Clvll Code however musL be consLrued ln relaLlon Lo ArLlcle
2217 of sald Code whlch reads
Moral damages lnclude physlcal sufferlng menLal angulsh frlghL serlous anxleLy
besmlrched repuLaLlon wounded feellngs moral shock soclal humlllaLlon and
slmllar ln[ury 1hough lncapable of pecunlary compuLaLlon moral damages may be
recovered lf Lhey are Lhe proxlmaLe resulL of Lhe defendanLs wrongful acL or
omlsslon
Moral damages are expllclLly auLhorlzed ln breaches of conLracL where Lhe
defendanL acLed fraudulenLly or ln bad falLh
31
Cood falLh however ls always
presumed and any person who seeks Lo be awarded damages due Lo Lhe acLs of
anoLher has Lhe burden of provlng LhaL Lhe laLLer acLed ln bad falLh wlLh mallce or
wlLh lll moLlve ln Lhe lnsLanL case peLlLloners have falled Lo show mallce or bad
falLh
32
on Lhe parL of n8 ln falllng Lo render an accounLlng AbsenL such showlng
moral damages cannoL be awarded
nor can we resLore Lhe award of aLLorneys fees and cosLs of sulL ln favor of
peLlLloners under ArLlcle 2208 (3) of Lhe Clvll Code aLLorneys fees are allowed ln
Lhe absence of sLlpulaLlon only lf Lhe defendanL acLed ln gross and evldenL bad
falLh ln refuslng Lo saLlsfy Lhe plalnLlff s plalnly valld [usL and demandable clalm
As earller sLaLed peLlLloners have noL proven bad falLh on Lhe parL of n8 and
PlLLx 1wpbl1ot
JLkLICkL Lhe lnsLanL peLlLlon ls DLNILD and Lhe assalled declslon of Lhe
respondenL courL ln CAC8 C? 38607 AIIIkMLD CosLs agalnsL peLlLloners
SC CkDLkLD

NC1 VS IAC
Gk No 744S7 March 20 1987
CkU2 I
1he essence of due process ls dlsLllled ln Lhe lmmorLal cry of 1hemlsLocles Lo
Alclblades SLrlke buL hear me flrsL! lL ls Lhls cry LhaL Lhe peLlLloner ln effecL
repeaLs here as he challenges Lhe consLlLuLlonallLy of LxecuLlve Crder no 626A
1he sald execuLlve order reads ln full as follows
WPL8LAS Lhe resldenL has glven orders prohlblLlng Lhe lnLerprovlnclal movemenL
of carabaos and Lhe slaughLerlng of carabaos noL complylng wlLh Lhe requlremenLs
of LxecuLlve Crder no 626 parLlcularly wlLh respecL Lo age
WPL8LAS lL has been observed LhaL desplLe such orders Lhe vlolaLors sLlll manage
Lo clrcumvenL Lhe prohlblLlon agalnsL lnLerprovlnclal movemenL of carabaos by
LransporLlng carabeef lnsLead and
WPL8LAS ln order Lo achleve Lhe purposes and ob[ecLlves of LxecuLlve Crder no
626 and Lhe prohlblLlon agalnsL lnLerprovlnclal movemenL of carabaos lL ls
necessary Lo sLrengLhen Lhe sald LxecuLlve Crder and provlde for Lhe dlsposlLlon of
Lhe carabaos and carabeef sub[ecL of Lhe vlolaLlon
nCW 1PL8LlC8L l lL8ulnAnu L MA8CCS resldenL of Lhe hlllpplnes by vlrLue
of Lhe powers vesLed ln me by Lhe ConsLlLuLlon do hereby promulgaLe Lhe
followlng
SLC1lCn 1 LxecuLlve Crder no 626 ls hereby amended such LhaL henceforLh no
carabao regardless of age sex physlcal condlLlon or purpose and no carabeef shall
be LransporLed from one provlnce Lo anoLher 1he carabao or carabeef LransporLed
ln vlolaLlon of Lhls LxecuLlve Crder as amended shall be sub[ecL Lo conflscaLlon and
forfelLure by Lhe governmenL Lo be dlsLrlbuLed Lo charlLable lnsLlLuLlons and oLher
16

slmllar lnsLlLuLlons as Lhe Chalrman of Lhe naLlonal MeaL lnspecLlon Commlsslon
may ay see flL ln Lhe case of carabeef and Lo deservlng farmers Lhrough dlspersal
as Lhe ulrecLor of Anlmal lndusLry may see flL ln Lhe case of carabaos
SLC1lCn 2 1hls LxecuLlve Crder shall Lake effecL lmmedlaLely
uone ln Lhe ClLy of Manlla Lhls 23Lh day of CcLober ln Lhe year of Cur Lord
nlneLeen hundred and elghLy
(SCu) lL8ulnAnu L MA8CCS
resldenL
8epubllc of Lhe hlllpplnes
1he peLlLloner had LransporLed slx carabaos ln a pump boaL from MasbaLe Lo llollo
on !anuary 13 1984 when Lhey were conflscaLed by Lhe pollce sLaLlon commander
of 8aroLac nuevo llollo for vlolaLlon of Lhe above measure 1 1he peLlLloner sued
for recovery and Lhe 8eglonal 1rlal CourL of llollo ClLy lssued a wrlL of replevln upon
hls flllng of a supersedeas bond of 1200000 AfLer conslderlng Lhe merlLs of Lhe
case Lhe courL susLalned Lhe conflscaLlon of Lhe carabaos and slnce Lhey could no
longer be produced ordered Lhe conflscaLlon of Lhe bond 1he courL also decllned
Lo rule on Lhe consLlLuLlonallLy of Lhe execuLlve order as ralse by Lhe peLlLloner for
lack of auLhorlLy and also for lLs presumed valldlLy
2

1he peLlLloner appealed Lhe declslon Lo Lhe lnLermedlaLe AppellaLe CourL*
3
whlch
upheld Lhe Lrlal courL ** and he has now come before us ln Lhls peLlLlon for revlew
on cerLlorarl
1he LhrusL of hls peLlLlon ls LhaL Lhe execuLlve order ls unconsLlLuLlonal lnsofar as lL
auLhorlzes ouLrlghL conflscaLlon of Lhe carabao or carabeef belng LransporLed
across provlnclal boundarles Pls clalm ls LhaL Lhe penalLy ls lnvalld because lL ls
lmposed wlLhouL accordlng Lhe owner a rlghL Lo be heard before a compeLenL and
lmparLlal courL as guaranLeed by due process Pe complalns LhaL Lhe measure
should noL have been presumed and so susLalned as consLlLuLlonal 1here ls also a
challenge Lo Lhe lmproper exerclse of Lhe leglslaLlve power by Lhe former resldenL
under AmendmenL no 6 of Lhe 1973 ConsLlLuLlon
4

Whlle also lnvolvlng Lhe same execuLlve order Lhe case of eslgan v Angeles
S
ls
noL appllcable here 1he quesLlon ralsed Lhere was Lhe necesslLy of Lhe prevlous
publlcaLlon of Lhe measure ln Lhe Cfflclal CazeLLe before lL could be consldered
enforceable We lmposed Lhe requlremenL Lhen on Lhe basls of due process of law
ln dolng so however Lhls CourL dld noL as conLended by Lhe SollclLor Ceneral
lmplledly afflrm Lhe consLlLuLlonallLy of LxecuLlve Crder no 626A 1haL ls an
enLlrely dlfferenL maLLer
1hls CourL has declared LhaL whlle lower courLs should observe a becomlng
modesLy ln examlnlng consLlLuLlonal quesLlons Lhey are noneLheless noL prevenLed
from resolvlng Lhe same whenever warranLed sub[ecL only Lo revlew by Lhe hlghesL
Lrlbunal
6
We have [urlsdlcLlon under Lhe ConsLlLuLlon Lo revlew revlse reverse
modlfy or afflrm on appeal or cerLlorarl as Lhe law or rules of courL may provlde
flnal [udgmenLs and orders of lower courLs ln among oLhers all cases lnvolvlng Lhe
consLlLuLlonallLy of cerLaln measures
7
1hls slmply means LhaL Lhe resoluLlon of
such cases may be made ln Lhe flrsL lnsLance by Lhese lower courLs
And whlle lL ls Lrue LhaL laws are presumed Lo be consLlLuLlonal LhaL presumpLlon ls
noL by any means concluslve and ln facL may be rebuLLed lndeed lf Lhere be a clear
showlng of Lhelr lnvalldlLy and of Lhe need Lo declare Lhem so Lhen wlll be Lhe
Llme Lo make Lhe hammer fall and heavlly
8
Lo recall !usLlce Laurels LrenchanL
warnlng SLaLed oLherwlse courLs should noL follow Lhe paLh of leasL reslsLance by
slmply presumlng Lhe consLlLuLlonallLy of a law when lL ls quesLloned Cn Lhe
conLrary Lhey should probe Lhe lssue more deeply Lo relleve Lhe abscess
paraphraslng anoLher dlsLlngulshed [urlsL
9
and so heal Lhe wound or exclse Lhe
affllcLlon
!udlclal power auLhorlzes Lhls and when Lhe exerclse ls demanded Lhere should be
no shlrklng of Lhe Lask for fear of reLallaLlon or loss of favor or popular censure or
any oLher slmllar lnhlblLlon unworLhy of Lhe bench especlally Lhls CourL
1he challenged measure ls denomlnaLed an execuLlve order buL lL ls really
presldenLlal decree promulgaLlng a new rule lnsLead of merely lmplemenLlng an
exlsLlng law lL was lssued by resldenL Marcos noL for Lhe purpose of Laklng care
LhaL Lhe laws were falLhfully execuLed buL ln Lhe exerclse of hls leglslaLlve auLhorlLy
under AmendmenL no 6 lL was provlded Lhereunder LhaL whenever ln hls
[udgmenL Lhere exlsLed a grave emergency or a LhreaL or lmmlnence Lhereof or
whenever Lhe leglslaLure falled or was unable Lo acL adequaLely on any maLLer LhaL
ln hls [udgmenL requlred lmmedlaLe acLlon he could ln order Lo meeL Lhe exlgency
lssue decrees orders or leLLers of lnsLrucLlon LhaL were Lo have Lhe force and effecL
of law As Lhere ls no showlng of any exlgency Lo [usLlfy Lhe exerclse of LhaL
exLraordlnary power Lhen Lhe peLlLloner has reason lndeed Lo quesLlon Lhe
valldlLy of Lhe execuLlve order neverLheless slnce Lhe deLermlnaLlon of Lhe
grounds was supposed Lo have been made by Lhe resldenL ln hls [udgmenL a
phrase LhaL wlll lead Lo proLracLed dlscusslon noL really necessary aL Lhls Llme we
reserve resoluLlon of Lhls maLLer unLll a more approprlaLe occaslon lor Lhe nonce
we conflne ourselves Lo Lhe more fundamenLal quesLlon of due process
lL ls parL of Lhe arL of consLlLuLlonmaklng LhaL Lhe provlslons of Lhe charLer be casL
ln preclse and unmlsLakable language Lo avold conLroversles LhaL mlghL arlse on
Lhelr correcL lnLerpreLaLlon 1haL ls Lhe ldeal ln Lhe case of Lhe due process clause
however Lhls rule was dellberaLely noL followed and Lhe wordlng was purposely
kepL amblguous ln facL a proposal Lo dellneaLe lL more clearly was submlLLed ln
Lhe ConsLlLuLlonal ConvenLlon of 1934 buL lL was re[ecLed by uelegaLe !ose
Laurel Chalrman of Lhe CommlLLee on Lhe 8lll of 8lghLs who forcefully argued
agalnsL lL Pe was susLalned by Lhe body 10
1he due process clause was kepL lnLenLlonally vague so lL would remaln also
convenlenLly reslllenL 1hls was felL necessary because due process ls noL llke some
provlslons of Lhe fundamenLal law an lron rule laylng down an lmplacable and
lmmuLable command for all seasons and all persons llexlblllLy musL be Lhe besL
17

vlrLue of Lhe guaranLy 1he very elasLlclLy of Lhe due process clause was meanL Lo
make lL adapL easlly Lo every slLuaLlon enlarglng or consLrlcLlng lLs proLecLlon as Lhe
changlng Llmes and clrcumsLances may requlre
Aware of Lhls Lhe courLs have also heslLaLed Lo adopL Lhelr own speclflc descrlpLlon
of due process lesL Lhey conflne Lhemselves ln a legal sLralL[ackeL LhaL wlll deprlve
Lhem of Lhe elbow room Lhey may need Lo vary Lhe meanlng of Lhe clause
whenever lndlcaLed lnsLead Lhey have preferred Lo leave Lhe lmporL of Lhe
proLecLlon openended as lL were Lo be gradually ascerLalned by Lhe process of
lncluslon and excluslon ln Lhe course of Lhe declslon of cases as Lhey arlse 11 1hus
!usLlce lellx lrankfurLer of Lhe uS Supreme CourL for example would go no
farLher Lhan Lo deflne due process and ln so dolng sums lL all up as noLhlng
more and noLhlng less Lhan Lhe embodlmenL of Lhe sporLlng ldea of falr play 12
When Lhe barons of Lngland exLracLed from Lhelr soverelgn llege Lhe relucLanL
promlse LhaL LhaL Crown would LhenceforLh noL proceed agalnsL Lhe llfe llberLy or
properLy of any of lLs sub[ecLs excepL by Lhe lawful [udgmenL of hls peers or Lhe law
of Lhe land Lhey Lhereby won for Lhemselves and Lhelr progeny LhaL splendld
guaranLy of falrness LhaL ls now Lhe hallmark of Lhe free socleLy 1he solemn vow
LhaL klng !ohn made aL 8unnymede ln 1213 has slnce Lhen resounded Lhrough Lhe
ages as a rlnglng remlnder Lo all rulers benevolenL or base LhaL every person
when confronLed by Lhe sLern vlsage of Lhe law ls enLlLled Lo have hls say ln a falr
and open hearlng of hls cause
1he closed mlnd has no place ln Lhe open socleLy lL ls parL of Lhe sporLlng ldea of
falr play Lo hear Lhe oLher slde before an oplnlon ls formed or a declslon ls made
by Lhose who slL ln [udgmenL Cbvlously one slde ls only onehalf of Lhe quesLlon
Lhe oLher half musL also be consldered lf an lmparLlal verdlcL ls Lo be reached based
on an lnformed appreclaLlon of Lhe lssues ln conLenLlon lL ls lndlspensable LhaL Lhe
Lwo sldes complemenL each oLher as unLo Lhe bow Lhe arrow ln leadlng Lo Lhe
correcL rullng afLer examlnaLlon of Lhe problem noL from one or Lhe oLher
perspecLlve only buL ln lLs LoLallLy A [udgmenL based on less LhaL Lhls full appralsal
on Lhe preLexL LhaL a hearlng ls unnecessary or useless ls LalnLed wlLh Lhe vlce of
blas or lnLolerance or lgnorance or worsL of all ln represslve reglmes Lhe lnsolence
of power
1he mlnlmum requlremenLs of due process are noLlce and hearlng 13 whlch
generally speaklng may noL be dlspensed wlLh because Lhey are lnLended as a
safeguard agalnsL offlclal arblLrarlness lL ls a graLlfylng commenLary on our [udlclal
sysLem LhaL Lhe [urlsprudence of Lhls counLry ls rlch wlLh appllcaLlons of Lhls
guaranLy as proof of our fealLy Lo Lhe rule of law and Lhe anclenL rudlmenLs of falr
play We have conslsLenLly declared LhaL every person faced by Lhe awesome
power of Lhe SLaLe ls enLlLled Lo Lhe law of Lhe land whlch uanlel WebsLer
descrlbed almosL Lwo hundred years ago ln Lhe famous uarLmouLh College Case 14
as Lhe law whlch hears before lL condemns whlch proceeds upon lnqulry and
renders [udgmenL only afLer Lrlal lL has Lo be so lf Lhe rlghLs of every person are Lo
be secured beyond Lhe reach of offlclals who ouL of mlsLaken zeal or plaln
arrogance would degrade Lhe due process clause lnLo a worn and empLy
caLchword
1hls ls noL Lo say LhaL noLlce and hearlng are lmperaLlve ln every case for Lo be
sure Lhere are a number of admlLLed excepLlons 1he concluslve presumpLlon for
example bars Lhe admlsslon of conLrary evldence as long as such presumpLlon ls
based on human experlence or Lhere ls a raLlonal connecLlon beLween Lhe facL
proved and Lhe facL ulLlmaLely presumed Lherefrom 1S 1here are lnsLances when
Lhe need for expedlLlons acLlon wlll [usLlfy omlsslon of Lhese requlslLes as ln Lhe
summary abaLemenL of a nulsance per se llke a mad dog on Lhe loose whlch may
be kllled on slghL because of Lhe lmmedlaLe danger lL poses Lo Lhe safeLy and llves
of Lhe people ornographlc maLerlals conLamlnaLed meaL and narcoLlc drugs are
lnherenLly pernlclous and may be summarlly desLroyed 1he passporL of a person
soughL for a crlmlnal offense may be cancelled wlLhouL hearlng Lo compel hls
reLurn Lo Lhe counLry he has fled 16 lllLhy resLauranLs may be summarlly
padlocked ln Lhe lnLeresL of Lhe publlc healLh and bawdy houses Lo proLecL Lhe
publlc morals 17 ln such lnsLances prevlous [udlclal hearlng may be omlLLed
wlLhouL vlolaLlon of due process ln vlew of Lhe naLure of Lhe properLy lnvolved or
Lhe urgency of Lhe need Lo proLecL Lhe general welfare from a clear and presenL
danger
1he proLecLlon of Lhe general welfare ls Lhe parLlcular funcLlon of Lhe pollce power
whlch boLh resLralnLs and ls resLralned by due process 1he pollce power ls slmply
deflned as Lhe power lnherenL ln Lhe SLaLe Lo regulaLe llberLy and properLy for Lhe
promoLlon of Lhe general welfare 18 8y reason of lLs funcLlon lL exLends Lo all Lhe
greaL publlc needs and ls descrlbed as Lhe mosL pervaslve Lhe leasL llmlLable and
Lhe mosL demandlng of Lhe Lhree lnherenL powers of Lhe SLaLe far ouLpaclng
LaxaLlon and emlnenL domaln 1he lndlvldual as a member of socleLy ls hemmed ln
by Lhe pollce power whlch affecLs hlm even before he ls born and follows hlm sLlll
afLer he ls dead from Lhe womb Lo beyond Lhe Lomb ln pracLlcally everyLhlng
he does or owns lLs reach ls vlrLually llmlLless lL ls a ublqulLous and ofLen
unwelcome lnLruslon Lven so as long as Lhe acLlvlLy or Lhe properLy has some
relevance Lo Lhe publlc welfare lLs regulaLlon under Lhe pollce power ls noL only
proper buL necessary And Lhe [usLlflcaLlon ls found ln Lhe venerable LaLln maxlms
Salus popull esL suprema lex and Slc uLere Luo uL allenum non laedas whlch call for
Lhe subordlnaLlon of lndlvldual lnLeresLs Lo Lhe beneflL of Lhe greaLer number
lL ls Lhls power LhaL ls now lnvoked by Lhe governmenL Lo [usLlfy LxecuLlve Crder
no 626A amendlng Lhe baslc rule ln LxecuLlve Crder no 626 prohlblLlng Lhe
slaughLer of carabaos excepL under cerLaln condlLlons 1he orlglnal measure was
lssued for Lhe reason as expressed ln one of lLs Whereases LhaL presenL
condlLlons demand LhaL Lhe carabaos and Lhe buffaloes be conserved for Lhe
beneflL of Lhe small farmers who rely on Lhem for energy needs We afflrm aL Lhe
ouLseL Lhe need for such a measure ln Lhe face of Lhe worsenlng energy crlsls and
18

Lhe lncreased dependence of our farms on Lhese LradlLlonal beasLs of burden Lhe
governmenL would have been remlss lndeed lf lL had noL Laken sLeps Lo proLecL
and preserve Lhem
A slmllar prohlblLlon was challenged ln unlLed SLaLes v 1orlblo 19 where a law
regulaLlng Lhe reglsLraLlon brandlng and slaughLer of large caLLle was clalmed Lo be
a deprlvaLlon of properLy wlLhouL due process of law 1he defendanL had been
convlcLed Lhereunder for havlng slaughLered hls own carabao wlLhouL Lhe requlred
permlL and he appealed Lo Lhe Supreme CourL 1he convlcLlon was afflrmed 1he
law was susLalned as a valld pollce measure Lo prevenL Lhe lndlscrlmlnaLe kllllng of
carabaos whlch were Lhen badly needed by farmers An epldemlc had sLrlcken
many of Lhese anlmals and Lhe reducLlon of Lhelr number had resulLed ln an acuLe
decllne ln agrlculLural ouLpuL whlch ln Lurn had caused an lnclplenL famlne
lurLhermore because of Lhe scarclLy of Lhe anlmals and Lhe consequenL lncrease ln
Lhelr prlce caLLlerusLllng had spread alarmlngly necesslLaLlng more effecLlve
measures for Lhe reglsLraLlon and brandlng of Lhese anlmals 1he CourL held LhaL
Lhe quesLloned sLaLuLe was a valld exerclse of Lhe pollce power and declared ln parL
as follows
1o [usLlfy Lhe SLaLe ln Lhus lnLerposlng lLs auLhorlLy ln behalf of Lhe publlc lL musL
appear flrsL LhaL Lhe lnLeresLs of Lhe publlc generally as dlsLlngulshed from Lhose
of a parLlcular class requlre such lnLerference and second LhaL Lhe means are
reasonably necessary for Lhe accompllshmenL of Lhe purpose and noL unduly
oppresslve upon lndlvlduals
lrom whaL has been sald we Lhlnk lL ls clear LhaL Lhe enacLmenL of Lhe provlslons of
Lhe sLaLuLe under conslderaLlon was requlred by Lhe lnLeresLs of Lhe publlc
generally as dlsLlngulshed from Lhose of a parLlcular class and LhaL Lhe prohlblLlon
of Lhe slaughLer of carabaos for human consumpLlon so long as Lhese anlmals are
flL for agrlculLural work or drafL purposes was a reasonably necessary llmlLaLlon
on prlvaLe ownershlp Lo proLecL Lhe communlLy from Lhe loss of Lhe servlces of
such anlmals by Lhelr slaughLer by lmprovldenL owners LempLed elLher by greed of
momenLary galn or by a deslre Lo en[oy Lhe luxury of anlmal food even when by so
dolng Lhe producLlve power of Lhe communlLy may be measurably and dangerously
affecLed
ln Lhe llghL of Lhe LesLs menLloned above we hold wlLh Lhe 1orlblo Case LhaL Lhe
carabao as Lhe poor mans LracLor so Lo speak has a dlrecL relevance Lo Lhe publlc
welfare and so ls a lawful sub[ecL of LxecuLlve Crder no 626 1he meLhod chosen ln
Lhe baslc measure ls also reasonably necessary for Lhe purpose soughL Lo be
achleved and noL unduly oppresslve upon lndlvlduals agaln followlng Lhe above
clLed docLrlne 1here ls no doubL LhaL by bannlng Lhe slaughLer of Lhese anlmals
excepL where Lhey are aL leasL seven years old lf male and eleven years old lf female
upon lssuance of Lhe necessary permlL Lhe execuLlve order wlll be conservlng Lhose
sLlll flL for farm work or breedlng and prevenLlng Lhelr lmprovldenL depleLlon
8uL whlle concedlng LhaL Lhe amendaLory measure has Lhe same lawful sub[ecL as
Lhe orlglnal execuLlve order we cannoL say wlLh equal cerLalnLy LhaL lL complles
wlLh Lhe second requlremenL vlz LhaL Lhere be a lawful meLhod We noLe LhaL Lo
sLrengLhen Lhe orlglnal measure LxecuLlve Crder no 626A lmposes an absoluLe
ban noL on Lhe slaughLer of Lhe carabaos buL on Lhelr movemenL provldlng LhaL no
carabao regardless of age sex physlcal condlLlon or purpose (slc) and no carabeef
shall be LransporLed from one provlnce Lo anoLher 1he ob[ecL of Lhe prohlblLlon
escapes us 1he reasonable connecLlon beLween Lhe means employed and Lhe
purpose soughL Lo be achleved by Lhe quesLloned measure ls mlsslng
We do noL see how Lhe prohlblLlon of Lhe lnLerprovlnclal LransporL of carabaos can
prevenL Lhelr lndlscrlmlnaLe slaughLer conslderlng LhaL Lhey can be kllled
anywhere wlLh no less dlfflculLy ln one provlnce Lhan ln anoLher Cbvlously
reLalnlng Lhe carabaos ln one provlnce wlll noL prevenL Lhelr slaughLer Lhere any
more Lhan movlng Lhem Lo anoLher provlnce wlll make lL easler Lo klll Lhem Lhere
As for Lhe carabeef Lhe prohlblLlon ls made Lo apply Lo lL as oLherwlse so says
execuLlve order lL could be easlly clrcumvenLed by slmply kllllng Lhe anlmal
erhaps so Powever lf Lhe movemenL of Lhe llve anlmals for Lhe purpose of
prevenLlng Lhelr slaughLer cannoL be prohlblLed lL should follow LhaL Lhere ls no
reason elLher Lo prohlblL Lhelr Lransfer as noL Lo be fllppanL dead meaL
Lven lf a reasonable relaLlon beLween Lhe means and Lhe end were Lo be assumed
we would sLlll have Lo reckon wlLh Lhe sancLlon LhaL Lhe measure applles for
vlolaLlon of Lhe prohlblLlon 1he penalLy ls ouLrlghL conflscaLlon of Lhe carabao or
carabeef belng LransporLed Lo be meLed ouL by Lhe execuLlve auLhorlLles usually
Lhe pollce only ln Lhe 1orlblo Case Lhe sLaLuLe was susLalned because Lhe penalLy
prescrlbed was flne and lmprlsonmenL Lo be lmposed by Lhe courL afLer Lrlal and
convlcLlon of Lhe accused under Lhe challenged measure slgnlflcanLly no such Lrlal
ls prescrlbed and Lhe properLy belng LransporLed ls lmmedlaLely lmpounded by Lhe
pollce and declared by Lhe measure lLself as forfelLed Lo Lhe governmenL
ln Lhe lnsLanL case Lhe carabaos were arblLrarlly conflscaLed by Lhe pollce sLaLlon
commander were reLurned Lo Lhe peLlLloner only afLer he had flled a complalnL for
recovery and glven a supersedeas bond of 1200000 whlch was ordered
conflscaLed upon hls fallure Lo produce Lhe carabaos when ordered by Lhe Lrlal
courL 1he execuLlve order deflned Lhe prohlblLlon convlcLed Lhe peLlLloner and
lmmedlaLely lmposed punlshmenL whlch was carrled ouL forLhrlghL 1he measure
sLruck aL once and pounced upon Lhe peLlLloner wlLhouL glvlng hlm a chance Lo be
heard Lhus denylng hlm Lhe cenLurlesold guaranLy of elemenLary falr play
lL has already been remarked LhaL Lhere are occaslons when noLlce and hearlng may
be valldly dlspensed wlLh noLwlLhsLandlng Lhe usual requlremenL for Lhese
mlnlmum guaranLees of due process lL ls also conceded LhaL summary acLlon may
be valldly Laken ln admlnlsLraLlve proceedlngs as procedural due process ls noL
necessarlly [udlclal only
20
ln Lhe excepLlonal cases accepLed however Lhere ls a
[usLlflcaLlon for Lhe omlsslon of Lhe rlghL Lo a prevlous hearlng Lo wlL Lhe
19

lmmedlacy of Lhe problem soughL Lo be correcLed and Lhe urgency of Lhe need Lo
correcL lL
ln Lhe case before us Lhere was no such pressure of Llme or acLlon calllng for Lhe
peLlLloners perempLory LreaLmenL 1he properLles lnvolved were noL even lnlmlcal
per se as Lo requlre Lhelr lnsLanL desLrucLlon 1here cerLalnly was no reason why Lhe
offense prohlblLed by Lhe execuLlve order should noL have been proved flrsL ln a
courL of [usLlce wlLh Lhe accused belng accorded all Lhe rlghLs safeguarded Lo hlm
under Lhe ConsLlLuLlon Conslderlng LhaL as we held ln eslgan v Angeles
21

LxecuLlve Crder no 626A ls penal ln naLure Lhe vlolaLlon Lhereof should have
been pronounced noL by Lhe pollce only buL by a courL of [usLlce whlch alone
would have had Lhe auLhorlLy Lo lmpose Lhe prescrlbed penalLy and only afLer Lrlal
and convlcLlon of Lhe accused
We also mark on Lop of all Lhls Lhe quesLlonable manner of Lhe dlsposlLlon of Lhe
conflscaLed properLy as prescrlbed ln Lhe quesLloned execuLlve order lL ls Lhere
auLhorlzed LhaL Lhe selzed properLy shall be dlsLrlbuLed Lo charlLable lnsLlLuLlons
and oLher slmllar lnsLlLuLlons as Lhe Chalrman of Lhe naLlonal MeaL lnspecLlon
Commlsslon may see flL ln Lhe case of carabeef and Lo deservlng farmers Lhrough
dlspersal as Lhe ulrecLor of Anlmal lndusLry may see flL ln Lhe case of carabaos
(Lmphasls supplled) 1he phrase may see flL ls an exLremely generous and
dangerous condlLlon lf condlLlon lL ls lL ls laden wlLh perllous opporLunlLles for
parLlallLy and abuse and even corrupLlon Cne searches ln valn for Lhe usual
sLandard and Lhe reasonable guldellnes or beLLer sLlll Lhe llmlLaLlons LhaL Lhe sald
offlcers musL observe when Lhey make Lhelr dlsLrlbuLlon 1here ls none 1helr
opLlons are apparenLly boundless Who shall be Lhe forLunaLe beneflclarles of Lhelr
generoslLy and by whaL crlLerla shall Lhey be chosen? Cnly Lhe offlcers named can
supply Lhe answer Lhey and Lhey alone may choose Lhe granLee as Lhey see flL and
ln Lhelr own excluslve dlscreLlon ueflnlLely Lhere ls here a rovlng commlsslon a
wlde and sweeplng auLhorlLy LhaL ls noL canallzed wlLhln banks LhaL keep lL from
overflowlng ln shorL a clearly profllgaLe and Lherefore lnvalld delegaLlon of
leglslaLlve powers
1o sum up Lhen we flnd LhaL Lhe challenged measure ls an lnvalld exerclse of Lhe
pollce power because Lhe meLhod employed Lo conserve Lhe carabaos ls noL
reasonably necessary Lo Lhe purpose of Lhe law and worse ls unduly oppresslve
uue process ls vlolaLed because Lhe owner of Lhe properLy conflscaLed ls denled Lhe
rlghL Lo be heard ln hls defense and ls lmmedlaLely condemned and punlshed 1he
confermenL on Lhe admlnlsLraLlve auLhorlLles of Lhe power Lo ad[udge Lhe gullL of
Lhe supposed offender ls a clear encroachmenL on [udlclal funcLlons and mlllLaLes
agalnsL Lhe docLrlne of separaLlon of powers 1here ls flnally also an lnvalld
delegaLlon of leglslaLlve powers Lo Lhe offlcers menLloned Lhereln who are granLed
unllmlLed dlscreLlon ln Lhe dlsLrlbuLlon of Lhe properLles arblLrarlly Laken lor Lhese
reasons we hereby declare LxecuLlve Crder no 626A unconsLlLuLlonal
We agree wlLh Lhe respondenL courL however LhaL Lhe pollce sLaLlon commander
who conflscaLed Lhe peLlLloners carabaos ls noL llable ln damages for enforclng Lhe
execuLlve order ln accordance wlLh lLs mandaLe 1he law was aL LhaL Llme
presumpLlvely valld and lL was hls obllgaLlon as a member of Lhe pollce Lo enforce
lL lL would have been lmperLlnenL of hlm belng a mere subordlnaLe of Lhe
resldenL Lo declare Lhe execuLlve order unconsLlLuLlonal and on hls own
responslblllLy alone refuse Lo execuLe lL Lven Lhe Lrlal courL ln facL and Lhe CourL
of Appeals lLself dld noL feel Lhey had Lhe compeLence for all Lhelr superlor
auLhorlLy Lo quesLlon Lhe order we now annul
1he CourL noLes LhaL lf Lhe peLlLloner had noL seen flL Lo asserL and proLecL hls
rlghLs as he saw Lhem Lhls case would never have reached us and Lhe Laklng of hls
properLy under Lhe challenged measure would have become a falL accompll desplLe
lLs lnvalldlLy We commend hlm for hls splrlL WlLhouL Lhe presenL challenge Lhe
maLLer would have ended ln LhaL pump boaL ln MasbaLe and anoLher vlolaLlon of
Lhe ConsLlLuLlon for all lLs obvlousness would have been perpeLraLed allowed
wlLhouL proLesL and soon forgoLLen ln Lhe llmbo of rellnqulshed rlghLs
1he sLrengLh of democracy lles noL ln Lhe rlghLs lL guaranLees buL ln Lhe courage of
Lhe people Lo lnvoke Lhem whenever Lhey are lgnored or vlolaLed 8lghLs are buL
weapons on Lhe wall lf llke expenslve LapesLry all Lhey do ls embelllsh and lmpress
8lghLs as weapons musL be a promlse of proLecLlon 1hey become Lruly
meanlngful and fulflll Lhe role asslgned Lo Lhem ln Lhe free socleLy lf Lhey are kepL
brlghL and sharp wlLh use by Lhose who are noL afrald Lo asserL Lhem
WPL8LlC8L LxecuLlve Crder no 626A ls hereby declared unconsLlLuLlonal LxcepL
as afflrmed above Lhe declslon of Lhe CourL of Appeals ls reversed 1he
supersedeas bond ls cancelled and Lhe amounL Lhereof ls ordered resLored Lo Lhe
peLlLloner no cosLs

MAkIANC VS CCMLLLC

9UNC
AL bench are Lwo (2) peLlLlons assalllng cerLaln provlslons of 8epubllc AcL no 7834
as unconsLlLuLlonal 8A no 7834 as unconsLlLuLlonal 8A no 7834 ls enLlLled An
AcL ConverLlng Lhe MunlclpallLy of MakaLl lnLo a Plghly urbanlzed ClLy Lo be known
as Lhe ClLy of MakaLl
1

C8 no 118377 lnvolves a peLlLlon for prohlblLlon and declaraLory rellef lL was
flled by peLlLloners !uanlLo Marlano !r Llgaya S 8auLlsLa 1ereslLa 1lbay Camllo
SanLos lrankle Cruz 8lcardo ascual 1ereslLa Abang valenLlna lLalvero 8uflno
Caldoza lloranLe Alba and erfecLo Alba Cf Lhe peLlLloners only Marlano !r ls a
resldenL of MakaLl 1he oLhers are resldenLs of lbayo ususan 1agulg MeLro Manlla
Sulng as Laxpayers Lhey assall as unconsLlLuLlonal secLlons 2 31 and 32 of 8A no
7834 on Lhe followlng grounds
20

1 SecLlon 2 of 8A no 7834 dld noL properly ldenLlfy Lhe land area or LerrlLorlal
[urlsdlcLlon of MakaLl by meLes and bounds wlLh Lechnlcal descrlpLlons ln vlolaLlon
of SecLlon 10 ArLlcle x of Lhe ConsLlLuLlon ln relaLlon Lo SecLlons 7 and 430 of Lhe
Local CovernmenL Code
2 SecLlon 31 of 8A no 7834 aLLempLs Lo alLer or resLarL Lhe Lhree consecuLlve
Lerm llmlL for local elecLlve offlclals ln vlolaLlon of SecLlon 8 ArLlcle x and SecLlon
7 ArLlcle vl of Lhe ConsLlLuLlon
3 SecLlon 32 of 8A no 7834 ls unconsLlLuLlonal for
(a) lL lncreased Lhe leglslaLlve dlsLrlcL of MakaLl only by speclal law (Lhe CharLer ln
vlolaLlon of Lhe consLlLuLlonal provlslon requlrlng a general reapporLlonmenL law Lo
be passed by Congress wlLhln Lhree (3) years followlng Lhe reLurn of every census
(b) Lhe lncrease ln leglslaLlve dlsLrlcL was noL expressed ln Lhe LlLle of Lhe blll and
(c) Lhe addlLlon of anoLher leglslaLlve dlsLrlcL ln MakaLl ls noL ln accord wlLh SecLlon
3 (3) ArLlcle vl of Lhe ConsLlLuLlon for as of Lhe laLesL survey (1990 census) Lhe
populaLlon of MakaLl sLands aL only 430000
C8 no 118627 was flled by Lhe peLlLloner !ohn P Csmena as senaLor Laxpayer
and concerned clLlzen eLlLloner assalls secLlon 32 of 8A no 7834 as
unconsLlLuLlonal on Lhe same grounds as aforesLaLed
We flnd no merlL ln Lhe peLlLlons
l
SecLlon 2 ArLlcle l of 8A no 7834 dellneaLed Lhe land areas of Lhe proposed clLy of
MakaLl Lhus
Sec 2 1be clty of Mokotl 1he MunlclpallLy of MakaLl shall be converLed lnLo a
hlghly urbanlzed clLy Lo be known as Lhe ClLy of MakaLl herelnafLer referred Lo as
Lhe ClLy wblcb sboll comptlse tbe pteseot tettltoty of tbe Moolclpollty of Mokotl lo
Mettopolltoo Moollo Ateo over whlch lL has [urlsdlcLlon bounded on Lhe norLheasL
by aslg 8lver and beyond by Lhe ClLy of Mandaluyong and Lhe MunlclpallLy of
aslg on Lhe souLheasL by Lhe munlclpallLles of aLeros and 1agulg on Lhe
souLhwesL by Lhe ClLy of asay and Lhe MunlclpallLy of 1agulg and on Lhe
norLhwesL by Lhe ClLy of Manlla
1he foregolng provlslon shall be wltboot ptejoJlce to tbe tesolotloo by tbe
opptoptlote oqeocy ot fotom of exlstloq boooJoty Jlspotes ot coses lovolvloq
poestloos of tettltotlol jotlsJlctloo betweeo tbe clty of Mokotl ooJ tbe oJjololoq
locol qovetomeot oolts (Lmphasls supplled)
ln C8 no 118377 peLlLloners clalm LhaL Lhls dellneaLlon vlolaLes secLlons 7 and
430 of Lhe Local CovernmenL Code whlch requlre LhaL Lhe area of a local
governmenL unlL should be made by meLes and bounds wlLh Lechnlcal descrlpLlons

2

1he lmporLance of drawlng wlLh preclse sLrokes Lhe LerrlLorlal boundarles of a local
unlL of governmenL cannoL be overemphaslzed 1he boundarles musL be clear for
Lhey deflne Lhe llmlLs of Lhe LerrlLorlal [urlsdlcLlon of a local governmenL unlL lL can
leglLlmaLely exerclse powers of governmenL only wlLhln Lhe llmlLs lLs acLs are oltto
vltes needless Lo sLaLe any uncerLalnLy ln Lhe boundarles of local governmenL
unlLs wlll sow cosLly confllcLs ln Lhe exerclse of governmenLal powers whlch
ulLlmaLely wlll pre[udlce Lhe peoples welfare 1hls ls Lhe evll soughL Lo avolded by
Lhe Local CovernmenL Code ln requlrlng LhaL Lhe land area of a local governmenL
unlL musL be spelled ouL ln meLes and bounds wlLh Lechnlcal descrlpLlons
Clven Lhe facLs of Lhe cases aL bench we cannoL percelve how Lhls evll can be
broughL abouL by Lhe descrlpLlon made ln secLlon 2 of 8A no 7834 eLlLloners
have noL demonsLraLed LhaL Lhe dellneaLlon of Lhe land area of Lhe proposed ClLy of
MakaLl wlll cause confuslon as Lo lLs boundarles We noLe LhaL sald dellneaLlon dld
noL change even by an lnch Lhe land area prevlously covered by MakaLl as a
munlclpallLy SecLlon 2 dld noL add subLracL dlvlde or mulLlply Lhe esLabllshed land
area of MakaLl ln language LhaL cannoL be any clearer secLlon 2 sLaLed LhaL Lhe
clLys land area shall comprlse Lhe pteseot LerrlLory of Lhe munlclpallLy
1he dellberaLlons of Congress wlll reveal LhaL Lhere ls a leglLlmaLe reason why Lhe
land area of Lhe proposed ClLy of MakaLl was noL deflned by meLes and bounds
wlLh Lechnlcal descrlpLlons AL Lhe Llme of Lhe conslderaLlon of 8A no 7834 Lhe
LerrlLorlal dlspuLe beLween Lhe munlclpallLles of MakaLl and 1agulg over lorL
8onlfaclo was under courL llLlgaLlon CuL of a becomlng sense of respecL Lo coequal
deparLmenL of governmenL leglslaLors felL LhaL Lhe dlspuLe should be lefL Lo Lhe
courLs Lo declde 1hey dld noL wanL Lo foreclose Lhe dlspuLe by maklng a leglslaLlve
flndlng of facL whlch could declde Lhe lssue 1hls would have ensued lf Lhey deflned
Lhe land area of Lhe proposed clLy by lLs exacL meLes and bounds wlLh Lechnlcal
descrlpLlons
3
We Lake [udlclal noLlce of Lhe facL LhaL Congress has also refralned
from uslng Lhe meLes and bounds descrlpLlon of land areas of oLher local
governmenL unlLs wlLh unseLLled boundary dlspuLes
4

We hold LhaL Lhe exlsLence of a boundary dlspuLe does noL pet se presenL an
lnsurmounLable dlfflculLy whlch wlll prevenL Congress from deflnlng wlLh
reasonable cerLlLude Lhe LerrlLorlal [urlsdlcLlon of a local governmenL unlL ln Lhe
cases aL bench Congress malnLalned Lhe exlsLlng boundarles of Lhe proposed ClLy
of MakaLl buL as an acL of falrness made Lhem sub[ecL Lo Lhe ulLlmaLe resoluLlon by
Lhe courLs Conslderlng Lhese pecullar clrcumsLances we are noL prepared Lo hold
LhaL secLlon 2 of 8A no 7834 ls unconsLlLuLlonal We susLaln Lhe submlsslon of Lhe
SollclLor Ceneral ln Lhls regard vlz
Colng now Lo SecLlons 7 and 430 of Lhe Local CovernmenL Code lL ls beyond cavll
LhaL Lhe requlremenL sLaLed Lhereln vlz Lhe LerrlLorlal [urlsdlcLlon of newly
creaLed or converLed clLles should be descrlbed by meLed and bounds wlLh
Lechnlcal descrlpLlons was made ln order Lo provlde a means by whlch Lhe area
of sald clLles may be reasonably ascerLalned ln oLher words Lhe requlremenL on
meLes and bounds was meanL merely as Lool ln Lhe esLabllshmenL of local
governmenL unlLs lL ls noL an end ln lLself tqo so long as Lhe LerrlLorlal
[urlsdlcLlon of a clLy may be reasonably ascerLalned le by referrlng Lo common
21

boundarles wlLh nelghborlng munlclpallLles as ln Lhls case Lhen lL may be
concluded LhaL Lhe leglslaLlve lnLenL behlnd Lhe law has been sufflclenLly served
CerLalnly Congress dld noL lnLends LhaL laws creaLlng new clLles musL conLaln
Lhereln deLalled Lechnlcal descrlpLlons slmllar Lo Lhose appearlng ln 1orrens LlLles
as peLlLloners seem Lo lmply 1o requlre such descrlpLlon ln Lhe law as a condlLlon
sloe poo ooo for lLs valldlLy would be Lo defeaL Lhe very purpose whlch Lhe Local
CovernmenL Code Lo seeks Lo serve 1he manlfesL lnLenL of Lhe Code ls Lo empower
local governmenL unlLs and Lo glve Lhem Lhelr rlghLful due lL seeks Lo make local
governmenLs more responslve Lo Lhe needs of Lhelr consLlLuenLs whlle aL Lhe same
Llme servlng as a vlLal cog ln naLlonal developmenL 1o lnvalldaLe 8A no 7834 on
Lhe mere ground LhaL no cadasLral Lype of descrlpLlon was used ln Lhe law would
serve Lhe leLLer buL defeaL Lhe splrlL of Lhe Code lL Lhen becomes a case of Lhe
masLer servlng Lhe slave lnsLead of Lhe oLher way around 1hls could noL be Lhe
lnLendmenL of Lhe law
1oo well seLLled ls Lhe rule LhaL laws musL be enforced when ascerLalned alLhough
lL may noL be conslsLenL wlLh Lhe sLrlcL leLLer of Lhe sLaLuLe CourLs wlll noL follow
Lhe leLLer of Lhe sLaLuLe when Lo do so would deparL from Lhe Lrue lnLenL of Lhe
leglslaLure or would oLherwlse yleld concluslons lnconslsLenL wlLh Lhe general
purpose of Lhe acL (1orres v Llm[ap 36 hll 141 1anada v Cuenco 103 hll
1031 Pldalgo v Pldalgo 33 SC8A 1103) LeglslaLlon ls an acLlve lnsLrumenL of
governmenL whlch for purposes of lnLerpreLaLlon means LhaL laws have ends Lo
achleve and sLaLuLes should be so consLrued as noL Lo defeaL buL Lo carry ouL such
ends and purposes (8ocolbo v LsLanlslao 72 SC8A 320) 1he same rule musL
lndublLably apply Lo Lhe case aL bar
ll
eLlLloners ln C8 no 118377 also assall Lhe consLlLuLlonallLy of secLlon 31 ArLlcle
x of 8A no 7834 SecLlon 31 sLaLes
Sec 31 Offlclols of tbe clty of Mokotl 1he represenL elecLlve offlclals of Lhe
MunlclpallLy of MakaLl shall conLlnue as Lhe offlclals of Lhe ClLy of MakaLl and shall
exerclse Lhelr powers and funcLlons unLll such Llme LhaL a new elecLlon ls held and
Lhe duly elecLed offlclals shall have already quallfled and assume Lhelr offlces
ltovlJeJ 1be oew clty wlll ocpolte o oew cotpotote exlsteoce 1he appolnLlve
offlclals and employees of Lhe ClLy shall llkewlse conLlnues exerclslng Lhelr funcLlons
and duLles and Lhey shall be auLomaLlcally absorbed by Lhe clLy governmenL of Lhe
ClLy of MakaLl
1hey conLend LhaL Lhls secLlon collldes wlLh secLlon 8 ArLlcle x and secLlon 7 ArLlcle
vl of Lhe ConsLlLuLlon whlch provlde
Sec 8 1he Lerm of offlce of elecLlve local offlclals excepL barangay offlclals whlch
shall be deLermlned by law shall be Lhree years and oo socb offlclol sboll setve fot
mote tboo tbtee coosecotlve tetms volunLary renunclaLlon of Lhe offlce for any
lengLh of Llme shall noL be consldered as an lnLerrupLlon ln Lhe conLlnulLy of hls
servlce for Lhe full Lerm for whlch he was elecLed
xxx xxx xxx
Sec 7 1he Members of Lhe Pouse of 8epresenLaLlves shall be elecLed for a Lerm of
Lhree years whlch shall begln unless oLherwlse provlded by law aL noon on Lhe
LhlrLleLh day of !une nexL followlng Lhelr elecLlon
no Member of Lhe Pouse of 8epresenLaLlves shall serve for more Lhan Lhree
consecuLlve Lerms volunLary renunclaLlon of Lhe offlce for any lengLh of Llme shall
noL be consldered as an lnLerrupLlon ln Lhe conLlnulLy of hls servlce for Lhe full Lerm
for whlch he was elecLed
eLlLloners sLress LhaL under Lhese provlslons electlve locol offlclols locloJloq
Membets of tbe noose of kepteseototlve bove o tetm of tbtee (J) yeots ooJ ote
ptoblblteJ ftom setvloq fot mote tboo tbtee (J) coosecotlve tetms 1hey argue LhaL
by provldlng LhaL Lhe new clLy shall acqulre o oew cotpotote exlsteoce secLlon 31 of
8A no 7834 resLarLs Lhe Lerm of Lhe presenL munlclpal elecLlve offlclals of MakaLl
and dlsregards Lhe Lerms prevlously served by Lhem ln parLlcular peLlLloners polnL
LhaL secLlon 31 favors Lhe lncumbenL MakaLl Mayor respondenL !e[omar 8lnay
who has already served for Lwo (2) consecuLlve Lerms 1hey furLher argue LhaL
should Mayor 8lnay declde Lo run and evenLually wln as clty moyot ln Lhe comlng
elecLlons he can sLlll run for Lhe same poslLlon ln 1998 and seek anoLher Lhreeyear
consecuLlve Lerm slnce hls prevlous Lhreeyear consecuLlve Lerm as moolclpol
moyot would noL be counLed 1hus peLlLloners conclude LhaL sald secLlon 31 has
been convenlenLly crafLed Lo sulL Lhe pollLlcal amblLlons of respondenL Mayor
8lnay
We cannoL enLerLaln Lhls challenge Lo Lhe consLlLuLlonallLy of secLlon 31 1he
requlremenLs before a llLlganL can challenge Lhe consLlLuLlonallLy of a law are well
dellneaLed 1hey are 1) Lhere musL be an acLual case or conLroversy (2) Lhe
quesLlon of consLlLuLlonallLy musL be ralsed by Lhe proper parLy (3) Lhe
consLlLuLlonal quesLlon musL be ralsed aL Lhe earllesL posslble opporLunlLy and (4)
Lhe declslon on Lhe consLlLuLlonal quesLlon musL be necessary Lo Lhe deLermlnaLlon
of Lhe case lLself
S

eLlLloners have far from complled wlLh Lhese requlremenLs 1he peLlLlon ls
premlsed on Lhe occurrence of many conLlngenL evenLs le LhaL Mayor 8lnay wlll
run agaln ln Lhls comlng mayoralLy elecLlons LhaL he would be reelecLed ln sald
elecLlons and LhaL he would seek reelecLlon for Lhe same poslLlon ln Lhe 1998
elecLlons Conslderlng LhaL Lhese conLlngencles may or may noL happen peLlLloners
merely pose a hypoLheLlcal lssue whlch has yeL Lo rlpen Lo an acLual case or
conLroversy eLlLloners who are resldenLs of 1agulg (excepL Marlano) are noL also
Lhe proper parLles Lo ralse Lhls absLracL lssue Worse Lhey holsL Lhls fuLurlsLlc lssue
ln a peLlLlon for declaraLory rellef over whlch Lhls CourL has no [urlsdlcLlon
lll
llnally peLlLloners ln Lhe Lwo (2) cases aL bench assall Lhe consLlLuLlonallLy of
secLlon 32 ArLlcle x of 8A no 7834 SecLlon 32 of Lhe CharLer provldes
22

Sec 32 leqlslotlve ulsttlcts upon lLs converslon lnLo a hlghlyurbanlzed clLy
MakaLl shall LhereafLer have aL leasL two (2) leqlslotlve Jlsttlcts LhaL shall lnlLlally
correspond Lo Lhe Lwo (2) exlsLlng dlsLrlcLs creaLed under SecLlon 3(a) of 8epubllc
AcL no 7166 as lmplemenLed by Lhe Commlsslon on LlecLlons Lo commence aL Lhe
nexL naLlonal elecLlons Lo be held afLer Lhe effecLlvlLy of Lhls AcL PenceforLh
barangays Magallanes uasmarlnas and lorbes shall be wlLh Lhe flrsL dlsLrlcL ln lleu
of 8arangay Cuadalupevle[o whlch shall form parL of Lhe second dlsLrlcL (emphasls
supplled)
1hey conLend LhaL Lhe addlLlon of anoLher leglslaLlve dlsLrlcL ln MakaLl ls
unconsLlLuLlonal for (1) reapporLlonmenL
6
cannoL made by a speclal law (2) Lhe
addlLlon of a leglslaLlve dlsLrlcL ls noL expressed ln Lhe LlLle of Lhe blll
7
and (3)
MakaLls populaLlon as per Lhe 1990 census sLands aL only four hundred flfLy
Lhousand (430000)
1hese lssues have been lald Lo resL ln Lhe recenL case of 1oblos v Abolos
8
ln sald
case we ruled LhaL reapporLlonmenL of leglslaLlve dlsLrlcLs may be made Lhrough a
speclal law such as ln Lhe charLer of a new clLy 1he ConsLlLuLlon
9
clearly provldes
LhaL Congress shall be composed of noL more Lhan Lwo hundred flfLy (230)
members ooless otbetwlse flxeJ by low As Lhus worded Lhe ConsLlLuLlon dld noL
preclude Congress from lncreaslng lLs membershlp by passlng a law oLher Lhan a
general reapporLlonmenL of Lhe law 1hls ls lLs exacLly whaL was done by Congress
ln enacLlng 8A no 7834 and provldlng for an lncrease ln MakaLls leglslaLlve
dlsLrlcL Moreover Lo hold LhaL reapporLlonmenL can only be made Lhrough a
general apporLlonmenL law wlLh a revlew of all Lhe leglslaLlve dlsLrlcLs alloLLed Lo
each local governmenL unlL naLlonwlde would creaLe an lnequlLable slLuaLlon
where a new clLy or provlnce creaLed by Congress wlll be denled leglslaLlve
represenLaLlon for an lndeLermlnaLe perlod of Llme
10
1he lnLolerable slLuaLlons wlll
deprlve Lhe people of a new clLy or provlnce a parLlcle of Lhelr soverelgnLy
11

SoverelgnLy cannoL admlL of any klnd of subLracLlon lL ls lndlvlslble lL musL be
forever whole or lL ls noL soverelgnLy
eLlLloners cannoL lnslsL LhaL Lhe addlLlon of anoLher leglslaLlve dlsLrlcL ln MakaLl ls
noL ln accord wlLh secLlon 3(3) ArLlcle vl
12
of Lhe ConsLlLuLlon for as of Lhe laLesL
survey (1990 census) Lhe populaLlon of MakaLl sLands aL only four hundred flfLy
Lhousand (430000)
13
Sald secLlon provldes lotet ollo LhaL a clLy wlLh a populaLlon
of ot leost two booJteJ flfty tboosooJ (230000) shall have ot leost ooe
tepteseototlve Lven granLlng LhaL Lhe populaLlon of MakaLl as of Lhe 1990 census
sLood aL four hundred flfLy Lhousand (430000) lLs leglslaLlve dlsLrlcL may sLlll be
lncreased slnce lL has meL Lhe mlnlmum populaLlon requlremenL of Lwo hundred
flfLy Lhousand (230000) ln facL secLlon 3 of Lhe Crdlnance appended Lo Lhe
ConsLlLuLlon provldes LhaL a clLy whose populaLlon has locteoseJ to mote tboo two
booJteJ flfty tboosooJ (250000) shall be enLlLled Lo ot leost ooe cooqtessloool
tepteseototlve
14

llnally we do noL flnd merlL ln peLlLloners conLenLlon LhaL Lhe creaLlon of an
addlLlonal leglslaLlve dlsLrlcL ln MakaLl should have been expressly sLaLed ln Lhe LlLle
of Lhe blll ln Lhe same case of 1oblos v Abolos op clt we relLeraLed Lhe pollcy of
Lhe CourL favorlng a llberal consLrucLlon of Lhe ooe tltleooe sobject rule so as noL
Lo lmpede leglslaLlon 1o be sure wlLh ConsLlLuLlon does noL command LhaL Lhe
LlLle of a law should exacLly mlrror fully lndex or compleLely caLalogue all lLs
deLalls Pence we ruled LhaL lL should be sufflclenL compllance lf Lhe LlLle
expresses Lhe general sub[ecL and all Lhe provlslons are germane Lo such general
sub[ecL
WPL8LlC8L Lhe peLlLlons are hereby ulSMlSSLu for lack of merlL no cosLs
SC C8uL8Lu
Notvoso cI lellclooo loJlllo 8lJlo keqoloJo kometo 8elloslllo Melo Oolosoo
vltoq kopoooo MeoJozo ooJ ltooclsco II coocot

kMU LA8Ck CLN1Lk VS GAkCIA
Gk No 11S381 December 23 1994

kA9UNAN
ubllc uLlllLles are prlvaLely owned and operaLed buslnesses whose servlce are
essenLlal Lo Lhe general publlc 1hey are enLerprlses whlch speclally caLer Lo Lhe
needs of Lhe publlc and conduce Lo Lhelr comforL and convenlence As such publlc
uLlllLy servlces are lmpressed wlLh publlc lnLeresL and concern 1he same ls Lrue
wlLh respecL Lo Lhe buslness of common carrler whlch holds such a pecullar relaLlon
Lo Lhe publlc lnLeresL LhaL Lhere ls superlnduced upon lL Lhe rlghL of publlc
regulaLlon when prlvaLe properLles are affecLed wlLh publlc lnLeresL hence Lhey
cease Lo be jotls ptlvotl only When Lherefore one devoLes hls properLy Lo a use ln
whlch Lhe publlc has an lnLeresL he ln effecL granLs Lo Lhe publlc an lnLeresL ln LhaL
use and musL submlL Lo Lhe conLrol by Lhe publlc for Lhe common good Lo Lhe
exLenL of Lhe lnLeresL he has Lhus creaLed
1

An abdlcaLlon of Lhe llcenslng and regulaLory governmenL agencles of Lhelr
funcLlons as Lhe lnsLanL peLlLlon seeks Lo show ls lndeed lamenLable noL only ls lL
an unsound admlnlsLraLlve pollcy buL lL ls lnlmlcal Lo publlc LrusL and publlc lnLeresL
as well
1he lnsLanL peLlLlon for cettlototl assalls Lhe consLlLuLlonallLy and valldlLy of cerLaln
memoranda clrculars and/or orders of Lhe ueparLmenL of 1ransporLaLlon and
CommunlcaLlons (uC1C) and Lhe Land 1ransporLaLlon lranchlslng and 8egulaLory
8oard L1l88)
2
whlch among oLhers (a) auLhorlze provlnclal bus and [eepney
operaLors Lo lncrease or decrease Lhe prescrlbed LransporLaLlon fares wlLhouL
appllcaLlon Lherefor wlLh Lhe L1l88 and wlLhouL hearlng and approval Lhereof by
sald agency ln vlolaLlon of Sec 16(c) of CommonwealLh AcL no 146 as amended
oLherwlse known as Lhe ubllc Servlce AcL and ln derogaLlon of L1l88s duLy Lo flx
and deLermlne [usL and reasonable fares by delegaLlng LhaL funcLlon Lo bus
23

operaLors and (b) esLabllsh a presumpLlon of publlc need ln favor of appllcanLs for
cerLlflcaLes of publlc convenlence (CC) and place on Lhe opposlLor Lhe burden of
provlng LhaL Lhere ls no need for Lhe proposed servlce ln paLenL vlolaLlon noL only
of Sec 16(c) of CA 146 as amended buL also of Sec 20(a) of Lhe same AcL
mandaLlng LhaL fares should be [usL and reasonable lL ls llkewlse vlolaLlve of Lhe
8ules of CourL whlch places upon each parLy Lhe burden Lo prove hls own
afflrmaLlve allegaLlons
3
1he offendlng provlslons conLalned ln Lhe quesLloned
lssuances polnLed ouL by peLlLloner have resulLed ln Lhe lnLroducLlon lnLo our
hlghways and Lhoroughfares Lhousands of old and smokebelchlng buses many of
whlch are rlghLhand drlven and have exposed our consumers Lo Lhe burden of
splrallng cosLs of publlc LransporLaLlon wlLhouL hearlng and due process
1he followlng memoranda clrculars and/or orders are soughL Lo be nulllfled by Lhe
lnsLanL peLlLlon vlz (a) uC1C Memorandum Crder 90393 daLed !une 26 1990
relaLlve Lo Lhe lmplemenLaLlon of a fare range scheme for provlnclal bus servlces ln
Lhe counLry (b) uC1C ueparLmenL Crder no
92387 daLed March 30 1992 deflnlng Lhe pollcy framework on Lhe regulaLlon of
LransporL servlces (c) uC1C Memorandum daLed CcLober 8 1992 laylng down
rules and procedures Lo lmplemenL ueparLmenL Crder no 92387 (d) L1l88
Memorandum Clrcular no 92009 provldlng lmplemenLlng guldellnes on Lhe uC1C
ueparLmenL Crder no 92387 and (e) L1l88 Crder daLed March 24 1994 ln Case
no 943112
1he relevanL anLecedenLs are as follows
Cn !une 26 1990 Lhen SecreLary of uC1C Cscar M Crbos lssued Memorandum
Clrcular no 90393 Lo Lhen L1l88 Chalrman 8emedlos AS lernando allowlng
provlnclal bus operaLors Lo charge passengers raLes wlLhln a range of 13 above
and 13 below Lhe L1l88 offlclal raLe for a perlod of one (1) year 1he LexL of Lhe
memorandum order reads ln full
Cne of Lhe pollcy reforms and measures LhaL ls ln llne wlLh Lhe LhrusLs and Lhe
prlorlLles seL ouL ln Lhe Medlum1erm hlllpplne uevelopmenL lan (M1u) 1987
1992) ls Lhe llberallzaLlon of regulaLlons ln Lhe LransporL secLor Along Lhls llne
Lhe CovernmenL lnLends Lo move away gradually from regulaLory pollcles and make
progress Lowards greaLer rellance on free markeL forces
8ased on several surveys and observaLlons bus companles are already charglng
passenger raLes above and below Lhe offlclal fare declared by L1l88 on many
provlnclal rouLes lL ls ln Lhls conLexL LhaL some form of llberallzaLlon on publlc
LransporL fares ls Lo be LesLed on a plloL basls
ln vlew Lhereof Lhe L1l88 ls hereby dlrecLed Lo lmmedlaLely publlclze a fare range
scheme for all provlnclal bus rouLes ln counLry (excepL Lhose operaLlng wlLhln
MeLro Manlla) 1toospott Opetotots sboll be olloweJ to cbotqe posseoqets wltblo o
tooqe of flfteeo petceot (15) obove ooJ flfteeo petceot (15) below tbe l1lk8
offlclol tote fot o petloJ of ooe yeot
Culdellnes and procedures for Lhe sald scheme shall be prepared by L1l88 ln
coordlnaLlon wlLh Lhe uC1C lannlng Servlce
1he lmplemenLaLlon of Lhe sald fare range scheme shall sLarL on 6 AugusL 1990
lor compllance (Lmphasls ours)
llndlng Lhe lmplemenLaLlon of Lhe fare range scheme noL legally feaslble
8emedlos AS lernando submlLLed Lhe followlng memorandum Lo Cscar M Crbos
on !uly 24 1990 Lo wlL
WlLh reference Lo uC1C Memorandum Crder no 90393 daLed 26 !une 1990 whlch
Lhe L1l88 recelved on 19 !uly 1990 dlrecLlng Lhe 8oard Lo lmmedlaLely publlclze a
fare range scheme for all provlnclal bus rouLes ln Lhe counLry (excepL Lhose
operaLlng wlLhln MeLro Manlla) LhaL wlll allow operaLors Lo charge passengers
wlLhln a range of flfLeen percenL (13) above and flfLeen percenL (13) below Lhe
L1l88 offlclal raLe for a perlod of one year Lhe underslgned ls respecLfully
adverLlng Lhe SecreLarys aLLenLlon Lo Lhe followlng for hls conslderaLlon
1 SecLlon 16(c) of Lhe ubllc Servlce AcL prescrlbes Lhe followlng for Lhe flxlng and
deLermlnaLlon of raLes (a) Lhe raLes Lo be approved should be proposed by publlc
servlce operaLors (b) Lhere should be a publlcaLlon and noLlce Lo concerned or
affecLed parLles ln Lhe LerrlLory affecLed (c) a publlc hearlng should be held for Lhe
flxlng of Lhe raLes hence lmplemenLaLlon of Lhe proposed fare range scheme on
AugusL 6 wlLhouL complylng wlLh Lhe requlremenLs of Lhe ubllc Servlce AcL may
noL be legally feaslble
2 1o allow bus operaLors ln Lhe counLry Lo charge fares flfLeen (13) above Lhe
presenL L1l88 fares ln Lhe wake of Lhe devasLaLlon deaLh and sufferlng caused by
Lhe !uly 16 earLhquake wlll noL be soclally warranLed and wlll be pollLlcally unsound
mosL llkely publlc crlLlclsm agalnsL Lhe uC1C and Lhe L1l88 wlll be Lrlggered by Lhe
unLlmely moto ptoplo lmplemenLaLlon of Lhe proposal by Lhe mere expedlenL of
publlclzlng Lhe fare range scheme wlLhouL calllng a publlc hearlng whlch scheme
many as early as durlng Lhe SecreLarys predecessor know Lhrough newspaper
reporLs and columnlsLs commenLs Lo be Aslan uevelopmenL 8ank and World 8ank
lnsplred
3 More Lhan lnduclng a reducLlon ln bus fares by flfLeen percenL (13) Lhe
lmplemenLaLlon of Lhe proposal wlll lnsLead Lrlgger an upward ad[usLmenL ln bus
fares by flfLeen percenL (13) aL a Llme when hundreds of Lhousands of people ln
CenLral and norLhern Luzon parLlcularly ln CenLral angaslnan La unlon 8agulo
ClLy nueva Lcl[a and Lhe Cagayan valley are sufferlng from Lhe devasLaLlon and
havoc caused by Lhe recenL earLhquake
4 ln lleu of Lhe sald proposal Lhe uC1C wlLh lLs agencles lnvolved ln publlc
LransporLaLlon can conslder measures and reforms ln Lhe lndusLry LhaL wlll be
soclally upllfLlng especlally for Lhe people ln Lhe areas devasLaLed by Lhe recenL
earLhquake
24

ln vlew of Lhe foregolng conslderaLlons Lhe underslgned respecLfully suggesLs LhaL
Lhe lmplemenLaLlon of Lhe proposed fare range scheme Lhls year be furLher sLudled
and evaluaLed
Cn uecember 3 1990 prlvaLe respondenL rovlnclal 8us CperaLors AssoclaLlon of
Lhe hlllpplnes lnc (8CA) flled an appllcaLlon for fare raLe lncrease An across
Lheboard lncrease of elghL and a half cenLavos (0083) per kllomeLer for all Lypes
of provlnclal buses wlLh a mlnlmummaxlmum fare range of flfLeen (13) percenL
over and below Lhe proposed baslc per kllomeLer fare raLe wlLh Lhe sald mlnlmum
maxlmum fare range applylng only Lo ordlnary flrsL class and premlum class buses
and a flfLycenLavo (030) mlnlmum per kllomeLer fare for alrcon buses was
soughL
Cn uecember 6 1990 prlvaLe respondenL 8CA reduced lLs applled proposed fare
Lo an acrossLheboard lncrease of slx and a half (0063) cenLavos per kllomeLer for
ordlnary buses 1he decrease was due Lo Lhe drop ln Lhe expecLed prlce of dlesel
1he appllcaLlon was opposed by Lhe hlllpplne Consumers loundaLlon lnc and
erla C 8auLlsLa alleglng LhaL Lhe proposed raLes were exorblLanL and unreasonable
and LhaL Lhe appllcaLlon conLalned no allegaLlon on Lhe raLe of reLurn of Lhe
proposed lncrease ln raLes
Cn uecember 14 1990 publlc respondenL L1l88 rendered a declslon granLlng Lhe
fare raLe lncrease ln accordance wlLh Lhe followlng schedule of fares on a sLralghL
compuLaLlon meLhod vlz
Au1nOkl2u lAk5
LuZCn
Mln Cl 3 kMS SuCCLLulnC kM
8LCuLA8 130 037
S1uuLn1 113 028
vlSA?AS/MlnuAnAC
8LCuLA8 160 0373
S1uuLn1 120 0283
ll8S1 CLASS (L8 kM)
LuZCn 0383
vlSA?AS/
MlnuAnAC 0393
8LMlL8L CLASS (L8 kM)
LuZCn 0393
vlSA?AS/
MlnuAnAC 0403
Al8CCn (L8 kM) 0413
4

Cn March 30 1992 Lhen SecreLary of Lhe ueparLmenL of 1ransporLaLlon and
CommunlcaLlons eLe nlcomedes rado lssued ueparLmenL Crder no
92387 deflnlng Lhe pollcy framework on Lhe regulaLlon of LransporL servlces 1he
full LexL of Lhe sald order ls reproduced below ln vlew of Lhe lmporLance of Lhe
provlslons conLalned Lhereln
WPL8LAS LxecuLlve Crder no 123 as amended deslgnaLes Lhe ueparLmenL of
1ransporLaLlon and CommunlcaLlons (uC1C) as Lhe prlmary pollcy plannlng
regulaLlng and lmplemenLlng agency on LransporLaLlon
WPL8LAS Lo achleve Lhe ob[ecLlve of a vlable efflclenL and dependable
LransporLaLlon sysLem Lhe LransporLaLlon regulaLory agencles under or aLLached Lo
Lhe uC1C have Lo harmonlze Lhelr declslons and adopL a common phllosophy and
dlrecLlon
WPL8LAS Lhe governmenL proposes Lo bulld on Lhe successful llberallzaLlon
measures pursued over Lhe lasL flve years and brlng Lhe LransporL secLor nearer Lo a
balanced longer Lerm regulaLory framework
nCW 1PL8LlC8L pursuanL Lo Lhe powers granLed by laws Lo Lhe uC1C Lhe
followlng pollcles and prlnclples ln Lhe economlc regulaLlon of land alr and waLer
LransporLaLlon servlces are hereby adopLed
1 LnLry lnLo and exlL ouL of Lhe lndusLry lollowlng Lhe ConsLlLuLlonal dlcLum
agalnsL monopoly no franchlse holder shall be permlLLed Lo malnLaln a monopoly
on any rouLe A mlnlmum of Lwo franchlse holders shall be permlLLed Lo operaLe on
any rouLe
1he requlremenLs Lo granL a cerLlflcaLe Lo operaLe or cerLlflcaLe of publlc
convenlence shall be proof of llllplno clLlzenshlp flnanclal capablllLy publlc need
and sufflclenL lnsurance cover Lo proLecL Lhe rldlng publlc
lo Jetetmloloq pobllc oeeJ tbe ptesomptloo of oeeJ fot o setvlce sboll be JeemeJ lo
fovot of tbe oppllcoot 1be botJeo of ptovloq tbot tbete ls oo oeeJ fot o ptoposeJ
setvlce sboll be wltb tbe opposltot(s)
ln Lhe lnLeresL of provldlng efflclenL publlc LransporL servlces Lhe use of Lhe prlor
operaLor and Lhe prlorlLy of flllng rules shall be dlsconLlnued 1he rouLe
measured capaclLy LesL or oLher slmllar LesLs of demand for vehlcle/vessel fleeL on
any rouLe shall be used only as a gulde ln welghlng Lhe merlLs of each franchlse
appllcaLlon and noL as a llmlL Lo Lhe servlces offered
Where Lhere are llmlLaLlons ln faclllLles such as congesLed road space ln urban
areas or aL alrporLs and porLs Lhe use of demand managemenL measures ln
conformlLy wlLh markeL prlnclples may be consldered
1he rlghL of an operaLor Lo leave Lhe lndusLry ls recognlzed as a buslness declslon
sub[ecL only Lo Lhe flllng of approprlaLe noLlce and followlng a phaseouL perlod Lo
lnform Lhe publlc and Lo mlnlmlze dlsrupLlon of servlces
2 8aLe and lare SeLLlng lrelghL raLes shall be freed gradually from governmenL
conLrols losseoqet fotes sboll olso be JeteqoloteJ except fot tbe lowest closs of
posseoqet setvlce (ootmolly tbltJ closs posseoqet ttoospott) fot wblcb tbe
qovetomeot wlll flx loJlcotlve ot tefeteoce fotes Opetotots of pottlcolot setvlces
moy flx tbelt owo fotes wltblo o tooqe 15 obove ooJ below tbe loJlcotlve ot
tefeteoce tote
23

Where Lhere ls lack of effecLlve compeLlLlon for servlces or on speclflc rouLes or
for Lhe LransporL of parLlcular commodlLles maxlmum mandaLory frelghL raLes or
passenger fares shall be seL Lemporarlly by Lhe governmenL pendlng acLlons Lo
lncrease Lhe level of compeLlLlon
lor unserved or slngle operaLor rouLes Lhe governmenL shall conLracL such servlces
ln Lhe mosL advanLageous Lerms Lo Lhe publlc and Lhe governmenL followlng publlc
blds for Lhe servlces 1he advlsablllLy of blddlng ouL Lhe servlces or uslng oLher klnds
of lncenLlves on such rouLes shall be sLudled by Lhe governmenL
3 Speclal lncenLlves and llnanclng for lleeL AcqulslLlon As a maLLer of pollcy Lhe
governmenL shall noL engage ln speclal flnanclng and lncenLlve programs lncludlng
dlrecL subsldles for fleeL acqulslLlon and expanslon Cnly when Lhe markeL slLuaLlon
warranLs governmenL lnLervenLlon shall programs of Lhls Lype be consldered
LxlsLlng programs shall be phased ouL gradually
1he Land 1ransporLaLlon lranchlslng and 8egulaLory 8oard Lhe Clvll AeronauLlcs
8oard Lhe MarlLlme lndusLry AuLhorlLy are hereby dlrecLed Lo submlL Lo Lhe Cfflce
of Lhe SecreLary wlLhln forLyflve (43) days of Lhls Crder Lhe deLalled rules and
procedures for Lhe lmplemenLaLlon of Lhe pollcles hereln seL forLh ln Lhe
formulaLlon of such rules Lhe concerned agencles shall be gulded by Lhe mosL
recenL sLudles on Lhe sub[ecLs such as Lhe rovlnclal 8oad assenger 1ransporL
SLudy Lhe Clvll AvlaLlon MasLer lan Lhe resldenLlal 1ask lorce on Lhe lnLerlsland
Shlpplng lndusLry and Lhe lnLerlsland Llner Shlpplng 8aLe 8aLlonallzaLlon SLudy
lor Lhe compllance of all concerned (Lmphasls ours)
Cn CcLober 8 1992 publlc respondenL SecreLary of Lhe ueparLmenL of
1ransporLaLlon and CommunlcaLlons !esus 8 Carcla !r lssued a memorandum Lo
Lhe AcLlng Chalrman of Lhe L1l88 suggesLlng swlfL acLlon on Lhe adopLlon of rules
and procedures Lo lmplemenL abovequoLed ueparLmenL Crder no 92387 LhaL lald
down deregulaLlon and oLher llberallzaLlon pollcles for Lhe LransporL secLor
ALLached Lo Lhe sald memorandum was a revlsed drafL of Lhe requlred rules and
procedures coverlng (l) LnLry lnLo and LxlL CuL of Lhe lndusLry and (ll) 8aLe and lare
SeLLlng wlLh commenLs and suggesLlons from Lhe World 8ank lncorporaLed Lhereln
Llkewlse resplendenL from Lhe sald memorandum ls Lhe sLaLemenL of Lhe uC1C
SecreLary LhaL Lhe adopLlon of Lhe rules and procedures ls a prerequlslLe Lo Lhe
approval of Lhe Lconomlc lnLegraLlon Loan from Lhe World 8ank
S

Cn lebruary 17 1993 Lhe L1l88 lssued Memorandum Clrcular
no 92009 promulgaLlng Lhe guldellnes for Lhe lmplemenLaLlon of uC1C
ueparLmenL Crder no 92387 1he Clrcular provldes among oLhers Lhe followlng
challenged porLlons
xxx xxx xxx
lv ollcy Culdellnes on Lhe lssuance of CerLlflcaLe of ubllc Convenlence
1he lssuance of a CerLlflcaLe of ubllc Convenlence ls deLermlned by publlc need
1be ptesomptloo of pobllc oeeJ fot o setvlce sboll be JeemeJ lo fovot of tbe
oppllcoot wblle botJeo of ptovloq tbot tbete ls oo oeeJ fot tbe ptoposeJ setvlce
sboll be tbe opposltot(s)
xxx xxx xxx
v 8aLe and lare SeLLlng
1he conLrol ln prlclng shall be llberallzed Lo lnLroduce prlce compeLlLlon
complemenLary wlLh Lhe quallLy of servlce sub[ecL Lo prlor noLlce and publlc
hearlng lares shall noL be provlslonally auLhorlzed wlLhouL publlc hearlng
A Cn Lhe Ceneral SLrucLure of 8aLes
1 1be exlstloq ootbotlzeJ fote tooqe system of plos ot mloos 15 pet ceot fot
ptovloclol boses ooJ jeepoeys sboll be wlJeoeJ to 20 ooJ 25 llmlt lo 1994 wltb
tbe ootbotlzeJ fote to be teploceJ by oo loJlcotlve ot tefeteoce tote os tbe bosls fot
tbe expooJeJ fote tooqe
2 lare sysLems for alrcon buses are llberallzed Lo cover flrsL class and premler
servlces
xxx xxx xxx
(Lmphasls ours)
SomeLlme ln March 1994 prlvaLe respondenL 8CA avalllng lLself of Lhe
deregulaLlon pollcy of Lhe uC1C allowlng provlnclal bus operaLors Lo collecL plus
20 and mlnus 23 of Lhe prescrlbed fare wlLhouL flrsL havlng flled a peLlLlon for
Lhe purpose and wlLhouL Lhe beneflL of a publlc hearlng announced a fare lncrease
of LwenLy (20) percenL of Lhe exlsLlng fares Sald lncreased fares were Lo be made
effecLlve on March 16 1994
Cn March 16 1994 peLlLloner kMu flled a peLlLlon before Lhe L1l88 opposlng Lhe
upward ad[usLmenL of bus fares
Cn March 24 1994 Lhe L1l88 lssued one of Lhe assalled orders dlsmlsslng Lhe
peLlLlon for lack of merlL 1he dlsposlLlve porLlon reads
8LMlSLS CCnSluL8Lu Lhls 8oard afLer conslderlng Lhe argumenLs of Lhe parLles
hereby ulSMlSSLS lC8 LACk Cl ML8l1 Lhe peLlLlon flled ln Lhe aboveenLlLled case
1hls peLlLlon ln Lhls case was resolved wlLh dlspaLch aL Lhe requesL of peLlLloner Lo
enable lL Lo lmmedlaLely avall of Lhe legal remedles or opLlons lL ls enLlLled under
exlsLlng laws
SC C8uL8Lu
6

Pence Lhe lnsLanL peLlLlon for cettlototl wlLh an urgenL prayer for lssuance of a
Lemporary resLralnlng order
1he CourL on !une 20 1994 lssued a Lemporary resLralnlng order en[olnlng
prohlblLlng and prevenLlng respondenLs from lmplemenLlng Lhe bus fare raLe
lncrease as well as Lhe quesLloned orders and memorandum clrculars 1hls meanL
LhaL provlnclal bus fares were rolled back Lo Lhe levels duly auLhorlzed by Lhe L1l88
prlor Lo March 16 1994 A moraLorlum was llkewlse enforced on Lhe lssuance of
franchlses for Lhe operaLlon of buses [eepneys and Laxlcabs
eLlLloner kMu anchors lLs clalm on Lwo (2) grounds llrsL Lhe auLhorlLy glven by
respondenL L1l88 Lo provlnclal bus operaLors Lo seL a fare range of plus or mlnus
26

flfLeen (13) percenL laLer lncreased Lo plus LwenLy (20) and mlnus LwenLyflve (
23) percenL over and above Lhe exlsLlng auLhorlzed fare wlLhouL havlng Lo flle a
peLlLlon for Lhe purpose ls unconsLlLuLlonal lnvalld and lllegal Second Lhe
esLabllshmenL of a presumpLlon of publlc need ln favor of an appllcanL for a
proposed LransporL servlce wlLhouL havlng Lo prove publlc necesslLy ls lllegal for
belng vlolaLlve of Lhe ubllc Servlce AcL and Lhe 8ules of CourL
ln lLs CommenL prlvaLe respondenL 8CA whlle noL acLually Louchlng upon Lhe
lssues ralsed by Lhe peLlLloner quesLlons Lhe wlsdom and Lhe manner by whlch Lhe
lnsLanL peLlLlon was flled lL asserLs LhaL Lhe peLlLloner has no legal sLandlng Lo sue
or has no real lnLeresL ln Lhe case aL bench and ln obLalnlng Lhe rellefs prayed for
ln Lhelr CommenL flled by Lhe Cfflce of Lhe SollclLor Ceneral publlc respondenLs
uC1C SecreLary !esus 8 Carcla !r and Lhe L1l88 asseveraLe LhaL Lhe peLlLloner
does noL have Lhe sLandlng Lo malnLaln Lhe lnsLanL sulL 1hey furLher clalm LhaL lL ls
wlLhln uC1C and L1l88s auLhorlLy Lo seL a fare range scheme and esLabllsh a
presumpLlon of publlc need ln appllcaLlons for cerLlflcaLes of publlc convenlence
We flnd Lhe lnsLanL peLlLlon lmpressed wlLh merlL
AL Lhe ouLseL Lhe Lhreshold lssue of locos stooJl musL be sLruck eLlLloner kMu
has Lhe sLandlng Lo sue
1he requlremenL of locos stooJl lnheres from Lhe deflnlLlon of [udlclal power
SecLlon 1 of ArLlcle vlll of Lhe ConsLlLuLlon provldes
xxx xxx xxx
!udlclal power lncludes Lhe duLy of Lhe courLs of [usLlce Lo seLLle acLual
conLroversles lnvolvlng rlghLs whlch are legally demandable and enforceable and Lo
deLermlne wheLher or noL Lhere has been a grave abuse of dlscreLlon amounLlng Lo
lack or excess of [urlsdlcLlon on Lhe parL of any branch or lnsLrumenLallLy of Lhe
CovernmenL
ln lomb v lblpps
7
we ruled LhaL [udlclal power ls Lhe power Lo hear and declde
causes pendlng beLween parLles who have Lhe rlghL Lo sue ln Lhe courLs of law and
equlLy Corollary Lo Lhls provlslon ls Lhe prlnclple of locos stooJl of a parLy llLlganL
Cne who ls dlrecLly affecLed by and whose lnLeresL ls lmmedlaLe and subsLanLlal ln
Lhe conLroversy has Lhe sLandlng Lo sue 1he rule Lherefore requlres LhaL a parLy
musL show a personal sLake ln Lhe ouLcome of Lhe case or an ln[ury Lo hlmself LhaL
can be redressed by a favorable declslon so as Lo warranL an lnvocaLlon of Lhe
courLs [urlsdlcLlon and Lo [usLlfy Lhe exerclse of Lhe courLs remedlal powers ln hls
behalf
8

ln Lhe case aL bench peLlLloner whose members had suffered and conLlnue Lo
suffer grave and lrreparable ln[ury and damage from Lhe lmplemenLaLlon of Lhe
quesLloned memoranda clrculars and/or orders has shown LhaL lL has a clear legal
rlghL LhaL was vlolaLed and conLlnues Lo be vlolaLed wlLh Lhe enforcemenL of Lhe
challenged memoranda clrculars and/or orders kMu members who avall of Lhe
use of buses Lralns and [eepneys everyday are dlrecLly affecLed by Lhe burdensome
cosL of arblLrary lncrease ln passenger fares 1hey are parL of Lhe mllllons of
commuLers who comprlse Lhe rldlng publlc CerLalnly Lhelr rlghLs musL be
proLecLed noL neglecLed nor lgnored
Assumlng otqoeoJo LhaL peLlLloner ls noL possessed of Lhe sLandlng Lo sue Lhls
courL ls ready Lo brush aslde Lhls barren procedural lnflrmlLy and recognlze Lhe legal
sLandlng of Lhe peLlLloner ln vlew of Lhe LranscendenLal lmporLance of Lhe lssues
ralsed And Lhls acL of llberallLy ls noL wlLhouL [udlclal precedenL As early as Lhe
metqeocy lowets coses Lhls CourL had exerclsed lLs dlscreLlon and walved Lhe
requlremenL of proper parLy ln Lhe recenL case of kllosboyoo loc et ol v 1eoflsto
Coloqooo It et ol
9
we ruled ln Lhe same llnes and enumeraLed some of Lhe cases
where Lhe same pollcy was adopLed vlz
A parLys sLandlng before Lhls CourL ls a procedural LechnlcallLy whlch lL may ln
Lhe exerclse of lLs dlscreLlon seL aslde ln vlew of Lhe lmporLance of Lhe lssues
ralsed ln Lhe landmark metqeocy lowets coses C8 no L2044 (AraneLa v
ulnglasan) C8 no L2736 (AraneLa
v Angeles) C8 no L3034 (8odrlguez v 1esorero de llllplnas) C8 no L3033
(Cuerrero v Commlssloner of CusLoms) and C8 no L3036 (8arredo v
Commlsslon on LlecLlons) 84 hll 368 (1949) Lhls CourL brushed aslde Lhls
LechnlcallLy because Lhe LranscendenLal lmporLance Lo Lhe publlc of Lhese cases
demands LhaL Lhey be seLLled prompLly and deflnlLely brushlng aslde lf we musL
LechnlcallLles of procedure (Avellno vs Cuenco C8 no L2621) lnsofar as
Laxpayers sulLs are concerned Lhls CourL had declared LhaL lL ls noL devold of
dlscreLlon as Lo wheLher or noL lL should be enLerLalned (1an v Macapagal 43
SC8A 677 680 1972) or LhaL lL en[oys an open dlscreLlon Lo enLerLaln Lhe same or
noL Sanldad v CCMLLLC 73 SC8A 333 (1976)
xxx xxx xxx
ln llne wlLh Lhe llberal pollcy of Lhls CourL on locos stooJl ordlnary Laxpayers
members of Congress and even assoclaLlon of planLers and
nonproflL clvlc organlzaLlons were allowed Lo lnlLlaLe and prosecuLe acLlons before
Lhls courL Lo quesLlon Lhe consLlLuLlonallLy or valldlLy of laws acLs declslons
rullngs or orders of varlous governmenL agencles or lnsLrumenLallLles Among such
cases were Lhose assalllng Lhe consLlLuLlonallLy of (a) 8A no 3836 lnsofar as lL
allows reLlremenL graLulLy and commuLaLlon of vacaLlon and slck leave Lo SenaLors
and 8epresenLaLlves and Lo elecLlve offlclals of boLh Pouses of Congress (hlllpplne
ConsLlLuLlon AssoclaLlon lnc v Clmenez 13 SC8A 479 1963) (b) LxecuLlve Crder
no 284 lssued by resldenL Corazon C Aqulno on 23 !uly 1987 whlch allowed
members of Lhe cablneL Lhelr undersecreLarles and asslsLanL secreLarles Lo hold
oLher governmenL offlces or poslLlons (Clvll LlberLles unlon v LxecuLlve SecreLary
194 SC8A 317 1991) (c) Lhe auLomaLlc approprlaLlon for debL servlce ln Lhe
Ceneral ApproprlaLlons AcL (Culngona v Carague 196 SC8A 221 1991 (d) 8A no
7036 on Lhe holdlng of desynchronlzed elecLlons (Csmena v Commlsslon on
LlecLlons 199 SC8A 730 1991) (e) u no 1869 (Lhe charLer of Lhe hlllpplne
AmusemenL and Camlng CorporaLlon) on Lhe ground LhaL lL ls conLrary Lo morals
27

publlc pollcy and order (8asco v hlllpplne AmusemenL and Camlng Corp 197
SC8A 32 1991) and (f) 8A no 6973 esLabllshlng Lhe hlllpplne naLlonal ollce
(Carplo v LxecuLlve SecreLary 206 SC8A 290 1992)
CLher cases where we have followed a llberal pollcy regardlng locos stooJl lnclude
Lhose aLLacklng Lhe valldlLy or legallLy of (a) an order allowlng Lhe lmporLaLlon of
rlce ln Lhe llghL of Lhe prohlblLlon lmposed by 8A no 3432 (llollo alay and Corn
lanLers AssoclaLlon lnc v lellclano 13 SC8A 377 1963 (b) u nos 991 and
1033 lnsofar as Lhey proposed amendmenLs Lo Lhe ConsLlLuLlon and u no 1031
lnsofar as lL dlrecLed Lhe CCMLLLC Lo supervlse conLrol hold and conducL Lhe
referendumpleblsclLe on 16 CcLober 1976 (Sanldad v Commlsslon on LlecLlons
sopto) (c) Lhe blddlng for Lhe sale of Lhe 3179 square meLers of land aL 8oppongl
MlnaLoku 1okyo !apan (Laurel v Carcla 187 SC8A 797 1990) (d) Lhe approval
wlLhouL hearlng by Lhe 8oard of lnvesLmenLs of Lhe amended appllcaLlon of Lhe
8aLaan eLrochemlcal CorporaLlon Lo Lransfer Lhe slLe of lLs planL from 8aLaan Lo
8aLangas and Lhe valldlLy of such Lransfer and Lhe shlfL of feedsLock from naphLha
only Lo naphLha and/or llquefled peLroleum gas (Carcla v 8oard of lnvesLmenLs
177 SC8A 374 1989 Carcla v 8oard of lnvesLmenLs 191 SC8A 288 1990) (e) Lhe
declslons orders rullngs and resoluLlons of Lhe LxecuLlve SecreLary SecreLary of
llnance Commlssloner of lnLernal 8evenue Commlssloner of CusLoms and Lhe
llscal lncenLlves 8evlew 8oard exempLlng Lhe naLlonal ower CorporaLlon from
lndlrecL Lax and duLles (Maceda v Macaralg 197 SC8A 771 1991) (f) Lhe orders of
Lhe Lnergy 8egulaLory 8oard of 3 and 6 uecember 1990 on Lhe ground LhaL Lhe
hearlngs conducLed on Lhe second provlslonal lncrease ln oll prlces dld noL allow
Lhe peLlLloner subsLanLlal crossexamlnaLlon (Maceda v Lnergy 8egulaLory 8oard
199 SC8A 434 1991) (g) LxecuLlve Crder no 478 whlch levled a speclal duLy of
093 per llLer of lmporLed oll producLs (Carcla v LxecuLlve SecreLary 211 SC8A 219
1992) (h) resoluLlons of Lhe Commlsslon on LlecLlons concernlng Lhe
apporLlonmenL by dlsLrlcL of Lhe number of elecLlve members of Sanggunlans (ue
Cula vs Commlsslon on LlecLlons 208 SC8A 420 1992) and (l) memorandum
orders lssued by a Mayor affecLlng Lhe Chlef of ollce of asay ClLy (asay Law and
Consclence unlon lnc v CuneLa 101 SC8A 662 1980)
ln Lhe 1973 case of Apoloo v commlssloo oo lectloos (62 SC8A 273 1973) Lhls
CourL desplLe lLs unequlvocal rullng LhaL Lhe peLlLloners Lhereln had no personallLy
Lo flle Lhe peLlLlon resolved neverLheless Lo pass upon Lhe lssues ralsed because of
Lhe farreachlng lmpllcaLlons of Lhe peLlLlon We dld no less ln ue Colo v cOMlc
(5opto) where alLhough we declared LhaL ue Cula does noL appear Lo have locos
stooJl a sLandlng ln law a personal or subsLanLlal lnLeresL we brushed aslde Lhe
procedural lnflrmlLy conslderlng Lhe lmporLance of Lhe lssue lnvolved concernlng
as lL does Lhe pollLlcal exerclse of quallfled voLers affecLed by Lhe apporLlonmenL
and peLlLloner alleglng abuse of dlscreLlon and vlolaLlon of Lhe ConsLlLuLlon by
respondenL
now on Lhe merlLs of Lhe case
Oo tbe fote tooqe scbeme
SecLlon 16(c) of Lhe ubllc Servlce AcL as amended reads
Sec 16 ltoceeJloqs of tbe commlssloo opoo ootlce ooJ beotloq 1he
Commlsslon shall have power opoo ptopet ootlce ooJ beotloq ln accordance wlLh
Lhe rules and provlslons of Lhls AcL sub[ecL Lo Lhe llmlLaLlons and excepLlons
menLloned and savlng provlslons Lo Lhe conLrary
xxx xxx xxx
(c) 1o flx and deLermlne lndlvldual or [olnL raLes Lolls charges classlflcaLlons or
schedules Lhereof as well as commuLaLlon mlleage kllomeLrage and oLher speclal
raLes whlch shall be lmposed observed and followed LhereafLer by any publlc
servlce ltovlJeJ 1haL Lhe Commlsslon may ln lLs dlscreLlon approve raLes
proposed by publlc servlces provlslonally and wlLhouL necesslLy of any hearlng buL
lL shall call a hearlng Lhereon wlLhln LhlrLy days LhereafLer upon publlcaLlon and
noLlce Lo Lhe concerns operaLlng ln Lhe LerrlLory affecLed ltovlJeJ fottbet 1haL ln
case Lhe publlc servlce equlpmenL of an operaLor ls used prlnclpally or secondarlly
for Lhe promoLlon of a prlvaLe buslness Lhe neL proflLs of sald prlvaLe buslness shall
be consldered ln relaLlon wlLh Lhe publlc servlce of such operaLor for Lhe purpose of
flxlng Lhe raLes (Lmphasls ours)
xxx xxx xxx
under Lhe foregolng provlslon Lhe LeglslaLure delegaLed Lo Lhe defuncL ubllc
Servlce Commlsslon Lhe power of flxlng Lhe raLes of publlc servlces 8espondenL
L1l88 Lhe exlsLlng regulaLory body Loday ls llkewlse vesLed wlLh Lhe same under
LxecuLlve Crder no 202 daLed !une 19 1987 SecLlon 3(c) of Lhe sald execuLlve
order auLhorlzes L1l88 Lo deLermlne prescrlbe approve and perlodlcally revlew
and ad[usL reasonable fares raLes and oLher relaLed charges relaLlve Lo Lhe
operaLlon of publlc land LransporLaLlon servlces provlded by moLorlzed vehlcles
Such delegaLlon of leglslaLlve power Lo an admlnlsLraLlve agency ls permlLLed ln
order Lo adapL Lo Lhe lncreaslng complexlLy of modern llfe As sub[ecLs for
governmenLal regulaLlon mulLlply so does Lhe dlfflculLy of admlnlsLerlng Lhe laws
Pence speclallzaLlon even ln leglslaLlon has become necessary Clven Lhe Lask of
deLermlnlng senslLlve and dellcaLe maLLers as
rouLeflxlng and raLemaklng for Lhe LransporL secLor Lhe responslble regulaLory
body ls enLrusLed wlLh Lhe power of subordlnaLe leglslaLlon WlLh Lhls auLhorlLy an
admlnlsLraLlve body and ln Lhls case Lhe L1l88 may lmplemenL broad pollcles lald
down ln a sLaLuLe by fllllng ln Lhe deLalls whlch Lhe LeglslaLure may nelLher have
Llme or compeLence Lo provlde Powever nowhere under Lhe aforesald provlslons
of law are Lhe regulaLory bodles Lhe SC and L1l88 allke auLhorlzed Lo delegaLe
LhaL power Lo a common carrler a LransporL operaLor or oLher publlc servlce
ln Lhe case aL bench Lhe auLhorlLy glven by Lhe L1l88 Lo Lhe provlnclal bus
operaLors Lo seL a fare range over and above Lhe auLhorlzed exlsLlng fare ls lllegal
and lnvalld as lL ls LanLamounL Lo an undue delegaLlon of leglslaLlve auLhorlLy
lotestos Jeleqoto ooo Jeleqotl potest WhaL has been delegaLed cannoL be
28

delegaLed 1hls docLrlne ls based on Lhe eLhlcal prlnclple LhaL such a delegaLed
power consLlLuLes noL only a rlghL buL a duLy Lo be performed by Lhe delegaLe
Lhrough Lhe lnsLrumenLallLy of hls own [udgmenL and noL Lhrough Lhe lnLervenlng
mlnd of anoLher
10
A furLher delegaLlon of such power would lndeed consLlLuLe a
negaLlon of Lhe duLy ln vlolaLlon of Lhe LrusL reposed ln Lhe delegaLe mandaLed Lo
dlscharge lL dlrecLly
11
1he pollcy of allowlng Lhe provlnclal bus operaLors Lo change
and lncrease Lhelr fares aL wlll would resulL noL only Lo a chaoLlc slLuaLlon buL Lo an
anarchlc sLaLe of affalrs 1hls would leave Lhe rldlng publlc aL Lhe mercy of LransporL
operaLors who may lncrease fares every hour every day every monLh or every
year whenever lL pleases Lhem or whenever Lhey deem lL necessary Lo do so ln
loooy Aotobos co v lblllpploe kollwoy co
12
where respondenL hlllpplne 8allway
Co was granLed by Lhe ubllc Servlce Commlsslon Lhe auLhorlLy Lo change lLs
frelghL raLes aL wlll Lhls CourL caLegorlcally declared LhaL
ln our oplnlon tbe lobllc 5etvlce commlssloo wos oot ootbotlzeJ by low to Jeleqote
to tbe lblllpploe kollwoy co tbe powet of oltetloq lts ftelqbt totes wbeoevet lt
sboolJ floJ lt oecessoty to Jo so lo otJet to meet tbe competltloo of tooJ ttocks ooJ
ootoboses ot to cbooqe lts ftelqbt totes ot wlll ot to teqotJ lts pteseot totes os
moxlmom totes ooJ to flx lowet totes wbeoevet lo tbe oploloo of tbe lblllpploe
kollwoy co lt woolJ be to lts oJvootoqe to Jo so
1he mere reclLal of Lhe language of Lhe appllcaLlon of Lhe hlllpplne 8allway Co ls
enough Lo show LhaL lL ls unLenable 1be leqlslotote bos JeleqoteJ to tbe lobllc
5etvlce commlssloo tbe powet of flxloq tbe totes of pobllc setvlces bot lt bos oot
ootbotlzeJ tbe lobllc 5etvlce commlssloo to Jeleqote tbot powet to o commoo
cottlet ot otbet pobllc setvlce 1he raLes of publlc servlces llke Lhe hlllpplne 8allway
Co have been approved or flxed by Lhe ubllc Servlce Commlsslon and any change
ln such raLes musL be auLhorlzed or approved by Lhe ubllc Servlce Commlsslon
afLer Lhey have been shown Lo be [usL and reasonable 1he publlc servlce may of
course propose new raLes as Lhe hlllpplne 8allway Co dld ln case no 31827 buL
lL cannoL lawfully make sald new raLes effecLlve wlLhouL Lhe approval of Lhe ubllc
Servlce Commlsslon and Lhe ubllc Servlce Commlsslon lLself cannoL auLhorlze a
publlc servlce Lo enforce new raLes wlLhouL Lhe prlor approval of sald raLes by Lhe
commlsslon 1he commlsslon musL approve new raLes when Lhey are submlLLed Lo
lL lf Lhe evldence shows Lhem Lo be [usL and reasonable oLherwlse lL musL
dlsapprove Lhem Clearly Lhe commlsslon cannoL deLermlne ln advance wheLher or
noL Lhe new raLes of Lhe hlllpplne 8allway Co wlll be [usL and reasonable because
lL does noL know whaL Lhose raLes wlll be
ln Lhe presenL case Lhe hlllpplne 8allway Co ln effecL asked for permlsslon Lo
change lLs frelghL raLes aL wlll lL may change Lhem every day or every hour
whenever lL deems lL necessary Lo do so ln order Lo meeL compeLlLlon or whenever
ln lLs oplnlon lL would be Lo lLs advanLage Such a procedure would creaLe a mosL
unsaLlsfacLory sLaLe of affalrs and largely defeaL Lhe purposes of Lhe publlc servlce
law
13
(Lmphasls ours)
Cne verlLable consequence of Lhe deregulaLlon of LransporL fares ls a compoooJeJ
fote lf LransporL operaLors wlll be auLhorlzed Lo lmpose and collecL an addlLlonal
amounL equlvalenL Lo 20 over and above Lhe auLhorlzed fare over a perlod of
Llme Lhls wlll unduly pre[udlce a commuLer who wlll be made Lo pay a fare LhaL has
been compuLed ln a manner slmllar Lo Lhose of compounded bank lnLeresL raLes
lcLure Lhls slLuaLlon Cn uecember 14 1990 Lhe L1l88 auLhorlzed provlnclal bus
operaLors Lo collecL a LhlrLyseven (037) cenLavo per kllomeLer fare for ordlnary
buses AL Lhe same Llme Lhey were allowed Lo lmpose and collecL a fare range of
plus or mlnus 13 over Lhe auLhorlzed raLe 1hus 037 cenLavo per kllomeLer
auLhorlzed fare plus 003 cenLavos (whlch ls 13 of 037 cenLavos) ls equlvalenL
Lo 042 cenLavos Lhe allowed raLe ln 1990 Supposlng Lhe L1l88 granLs anoLher
flve (003) cenLavo lncrease per kllomeLer ln 1994 Lhen Lhe base or reference for
compuLaLlon would have Lo be 047 cenLavos (whlch ls 042 + 003 cenLavos) lf
bus operaLors wlll exerclse Lhelr auLhorlLy Lo lmpose an addlLlonal 20 over and
above Lhe auLhorlzed fare Lhen Lhe fare Lo be collecLed shall amounL Lo 036 (LhaL
ls 047 auLhorlzed L1l88 raLe plus 20 of 047 whlch ls 029) ln effecL
commuLers wlll be conLlnuously sub[ecLed noL only Lo a double fare ad[usLmenL buL
Lo a compoundlng fare as well Cn Lhelr parL LransporL operaLors shall en[oy a
blgger chunk of Lhe ple Aslde from fare lncrease applled for Lhey can sLlll collecL an
addlLlonal amounL by vlrLue of Lhe auLhorlzed fare range MaLhemaLlcally Lhe
slLuaLlon LranslaLes lnLo Lhe followlng
?ear** L1l88 auLhorlzed lare 8ange lare Lo be
raLe*** collecLed per
kllomeLer
1990 037 13 (003) 042
1994 042 + 003 047 20 (009) 036
1998 036 + 003 061 20 (012) 073
2002 073 + 003 078 20 (016) 094
Moreover raLe maklng or raLe flxlng ls noL an easy Lask lL ls a dellcaLe and senslLlve
governmenL funcLlon LhaL requlres dexLerlLy of [udgmenL and sound dlscreLlon wlLh
Lhe seLLled goal of arrlvlng aL a [usL and reasonable raLe accepLable Lo boLh Lhe
publlc uLlllLy and Lhe publlc Several facLors ln facL have Lo be Laken lnLo
conslderaLlon before a balance could be achleved A raLe should noL be conflscaLory
as would place an operaLor ln a slLuaLlon where he wlll conLlnue Lo operaLe aL a
loss Pence Lhe raLe should enable publlc uLlllLles Lo generaLe revenues sufflclenL Lo
cover operaLlonal cosLs and provlde reasonable reLurn on Lhe lnvesLmenLs Cn Lhe
oLher hand a raLe whlch ls Loo hlgh becomes dlscrlmlnaLory lL ls conLrary Lo publlc
lnLeresL A raLe Lherefore musL be reasonable and falr and musL be offotJoble Lo
Lhe end user who wlll uLlllze Lhe servlces
Clven Lhe complexlLy of Lhe naLure of Lhe funcLlon of raLeflxlng and lLs farreachlng
effecLs on mllllons of commuLers governmenL musL noL rellnqulsh Lhls lmporLanL
funcLlon ln favor of Lhose who would beneflL and proflL from Lhe lndusLry nelLher
29

should Lhe requlslLe noLlce and hearlng be done away wlLh 1he people
represenLed by repuLable opposlLors deserve Lo be glven full opporLunlLy Lo be
heard ln Lhelr opposlLlon Lo any fare lncrease
1he presenL admlnlsLraLlve procedure
14
Lo our mlnd already mlrrors an orderly
and saLlsfacLory arrangemenL for all parLles lnvolved 1o do away wlLh such a
procedure and allow [usL one parLy an lnLeresLed parLy aL LhaL Lo deLermlne whaL
Lhe raLe should be wlll undermlne Lhe rlghL of Lhe oLher parLles Lo due process 1he
purpose of a hearlng ls preclsely Lo deLermlne whaL a [usL and reasonable raLe ls
1S

ulscardlng such procedural and consLlLuLlonal rlghL ls cerLalnly lnlmlcal Lo our
fundamenLal law and Lo publlc lnLeresL
Oo tbe ptesomptloo of pobllc oeeJ
A cerLlflcaLe of publlc convenlence (CC) ls an auLhorlzaLlon granLed by Lhe L1l88
for Lhe operaLlon of land LransporLaLlon servlces for publlc use as requlred by law
ursuanL Lo SecLlon 16(a) of Lhe ubllc Servlce AcL as amended Lhe followlng
requlremenLs musL be meL before a CC may be granLed Lo wlL (l) Lhe appllcanL
musL be a clLlzen of Lhe hlllpplnes or a corporaLlon or coparLnershlp assoclaLlon
or [olnLsLock company consLlLuLed and organlzed under Lhe laws of Lhe hlllpplnes
aL leasL 60 pet ceotom of lLs sLock or paldup caplLal musL belong enLlrely Lo clLlzens
of Lhe hlllpplnes (ll) Lhe appllcanL musL be flnanclally capable of underLaklng Lhe
proposed servlce and meeLlng Lhe responslblllLles lncldenL Lo lLs operaLlon and (lll)
tbe oppllcoot most ptove tbot tbe opetotloo of tbe pobllc setvlce ptoposeJ ooJ tbe
ootbotlzotloo to Jo bosloess wlll ptomote tbe pobllc lotetest lo o ptopet ooJ soltoble
moooet lL ls undersLood LhaL Lhere musL be proper noLlce and hearlng before Lhe
SC can exerclse lLs power Lo lssue a CC
Whlle adopLlng lo toto Lhe foregolng requlslLes for Lhe lssuance of a CC L1l88
Memorandum Clrcular no 92009 arL lv provldes for yeL lncongruous and
conLradlcLory pollcy guldellne on Lhe lssuance of a CC 1he guldellnes sLaLes
1he lssuance of a CerLlflcaLe of ubllc Convenlence ls deLermlned by publlc need
1be ptesomptloo of pobllc oeeJ fot o setvlce sboll be JeemeJ lo fovot of tbe
oppllcoot wblle tbe botJeo of ptovloq tbot tbete ls oo oeeJ fot tbe ptoposeJ setvlce
sboll be tbe opposltots (Lmphasls ours)
1he abovequoLed provlslon ls enLlrely lncompaLlble and lnconslsLenL wlLh SecLlon
16(c)(lll) of Lhe ubllc Servlce AcL whlch requlres LhaL before a CC wlll be lssued
Lhe appllcanL musL prove by proper noLlce and hearlng LhaL Lhe operaLlon of Lhe
publlc servlce proposed wlll promoLe publlc lnLeresL ln a proper and sulLable
manner Cn Lhe conLrary Lhe pollcy guldellne sLaLes LhaL Lhe presumpLlon of publlc
need for a publlc servlce shall be deemed ln favor of Lhe appllcanL ln case of
confllcL beLween a sLaLuLe and an admlnlsLraLlve order Lhe former musL prevall
8y lLs Lerms publlc convenlence or necesslLy generally means someLhlng flLLlng or
sulLed Lo Lhe publlc need
16
As one of Lhe baslc requlremenLs for Lhe granL of a CC
publlc convenlence and necesslLy exlsLs when Lhe proposed faclllLy or servlce meeLs
a reasonable wanL of Lhe publlc and supply a need whlch Lhe exlsLlng faclllLles do
noL adequaLely supply 1he exlsLence or
nonexlsLence of publlc convenlence and necesslLy ls Lherefore a quesLlon of facL
LhaL musL be esLabllshed by evldence real and/or LesLlmonlal emplrlcal daLa
sLaLlsLlcs and such oLher means necessary ln a publlc hearlng conducLed for LhaL
purpose 1he ob[ecL and purpose of such procedure among oLher Lhlngs ls Lo look
ouL for and proLecL Lhe lnLeresLs of boLh Lhe publlc and Lhe exlsLlng LransporL
operaLors
verlly Lhe power of a regulaLory body Lo lssue a CC ls founded on Lhe condlLlon
LhaL afLer fulldress hearlng and lnvesLlgaLlon lL shall flnd as a facL LhaL Lhe
proposed operaLlon ls for Lhe convenlence of Lhe publlc
17
8aslc convenlence ls Lhe
prlmary conslderaLlon for whlch a CC ls lssued and LhaL facL alone musL be
conslsLenLly borne ln mlnd Also exlsLlng operaLors ln sub[ecL rouLes musL be glven
an opporLunlLy Lo offer proof and oppose Lhe appllcaLlon 1herefore an appllcanL
musL aL all Llmes be requlred Lo prove hls capaclLy and capablllLy Lo furnlsh Lhe
servlce whlch he has underLaken Lo
render
18
And all Lhls wlll be posslble only lf a publlc hearlng were conducLed for
LhaL purpose
CLherwlse sLaLed Lhe esLabllshmenL of publlc need ln favor of an appllcanL reverses
wellseLLled and lnsLlLuLlonallzed [udlclal quasl[udlclal and admlnlsLraLlve
procedures lL allows Lhe parLy who lnlLlaLes Lhe proceedlngs Lo prove by mere
appllcaLlon hls afflrmaLlve allegaLlons Moreover Lhe offendlng provlslons of Lhe
L1l88 memorandum clrcular ln quesLlon would ln effecL amend Lhe 8ules of CourL
by addlng anoLher dlspuLable presumpLlon ln Lhe enumeraLlon of 37 presumpLlons
under 8ule 131 SecLlon 3 of Lhe 8ules of CourL Such usurpaLlon of Lhls CourLs
auLhorlLy cannoL be counLenanced as only Lhls CourL ls mandaLed by law Lo
promulgaLe rules concernlng pleadlng pracLlce and procedure
19

ueregulaLlon whlle lL may be ldeal ln cerLaln slLuaLlons may noL be ldeal aL all ln
our counLry glven Lhe presenL clrcumsLances Advocacy of llberallzed franchlslng
and regulaLory process ls LanLamounL Lo an abdlcaLlon by Lhe governmenL of lLs
lnherenL rlghL Lo exerclse pollce power LhaL ls Lhe rlghL of governmenL Lo regulaLe
publlc uLlllLles for proLecLlon of Lhe publlc and Lhe uLlllLles Lhemselves
Whlle we recognlze Lhe auLhorlLy of Lhe uC1C and Lhe L1l88 Lo lssue admlnlsLraLlve
orders Lo regulaLe Lhe LransporL secLor we flnd LhaL Lhey commlLLed grave abuse of
dlscreLlon ln lssulng uC1C ueparLmenL Crder
no 92387 deflnlng Lhe pollcy framework on Lhe regulaLlon of LransporL servlces
and L1l88 Memorandum Clrcular no 92009 promulgaLlng Lhe lmplemenLlng
guldellnes on uC1C ueparLmenL Crder no 92387 Lhe sald admlnlsLraLlve
lssuances belng amendaLory and vlolaLlve of Lhe ubllc Servlce AcL and Lhe 8ules of
CourL ConsequenLly we rule LhaL Lhe LwenLy (20) pet ceotom fare lncrease
lmposed by respondenL 8CA on March 16 1994 wlLhouL Lhe beneflL of a peLlLlon
and a publlc hearlng ls null and vold and of no force and effecL no grave abuse of
dlscreLlon however was commlLLed ln Lhe lssuance of uC1C Memorandum Crder
30

no 90393 and uC1C Memorandum daLed CcLober 8 1992 Lhe same belng merely
lnLernal communlcaLlons beLween admlnlsLraLlve offlcers
WPL8LlC8L ln vlew of Lhe foregolng Lhe lnsLanL peLlLlon ls hereby C8An1Lu and
Lhe challenged admlnlsLraLlve lssuances and orders namely uC1C ueparLmenL
Crder no 92387 L1l88 Memorandum Clrcular
no 92009 and Lhe order daLed March 24 1994 lssued by respondenL L1l88 are
hereby uLCLA8Lu conLrary Lo law and lnvalld lnsofar as Lhey affecL provlslons
Lhereln (a) delegaLlng Lo provlnclal bus and [eepney operaLors Lhe auLhorlLy Lo
lncrease or decrease Lhe duly prescrlbed LransporLaLlon fares and (b) creaLlng a
presumpLlon of publlc need for a servlce ln favor of Lhe appllcanL for a cerLlflcaLe of
publlc convenlence and placlng Lhe burden of provlng LhaL Lhere ls no need for Lhe
proposed servlce Lo Lhe opposlLor
1he 1emporary 8esLralnlng Crder lssued on !une 20 1994 ls hereby MAuL
L8MAnLn1 lnsofar as lL en[olned Lhe bus fare raLe lncrease granLed under Lhe
provlslons of Lhe aforemenLloned admlnlsLraLlve clrculars memoranda and/or
orders declared lnvalld
no pronouncemenL as Lo cosLs
SC C8uL8Lu
loJlllo uovlJe It 8elloslllo ooJ Oolosoo II coocot

SANLAkAS VS LkLCU1IVL SLCkL1Ak
Gk No 1S908S Iebruary 3 2004
1INGA
1hey came ln Lhe mlddle of Lhe nlghL Armed wlLh hlghpowered ammunlLlons and
exploslves some Lhree hundred [unlor offlcers and enllsLed men of Lhe Armed
lorces of Lhe hlllpplnes (Al) sLormed lnLo Lhe Cakwood remlere aparLmenLs ln
MakaLl ClLy ln Lhe wee hours of !uly 27 2003 8ewalllng Lhe corrupLlon ln Lhe Al
Lhe soldlers demanded among oLher Lhlngs Lhe reslgnaLlon of Lhe resldenL Lhe
SecreLary of uefense and Lhe Chlef of Lhe hlllpplne naLlonal ollce (n)
1

ln Lhe wake of Lhe Cakwood occupaLlon Lhe resldenL lssued laLer ln Lhe day
roclamaLlon no 427 and Ceneral Crder no 4 boLh declarlng a sLaLe of rebelllon
and calllng ouL Lhe Armed lorces Lo suppress Lhe rebelllon roclamaLlon no 427
reads ln full
8CCLAMA1lCn nC 427
uLCLA8lnC A S1A1L Cl 8L8LLLlCn
WPL8LAS cerLaln elemenLs of Lhe Armed lorces of Lhe hlllpplnes armed wlLh
hlghpowered flrearms and exploslves acLlng upon Lhe lnsLlgaLlon and command
and dlrecLlon of known and unknown leaders have selzed a bulldlng ln MakaLl ClLy
puL bombs ln Lhe area publlcly declared wlLhdrawal of supporL for and Look arms
agalnsL Lhe duly consLlLuLed CovernmenL and conLlnue Lo rlse publlcly and show
open hosLlllLy for Lhe purpose of removlng alleglance Lo Lhe CovernmenL cerLaln
bodles of Lhe Armed lorces of Lhe hlllpplnes and Lhe hlllpplne naLlonal ollce
and deprlvlng Lhe resldenL of Lhe 8epubllc of Lhe hlllpplnes wholly or parLlally of
her powers and prerogaLlves whlch consLlLuLe Lhe crlme of rebelllon punlshable
under ArLlcle 134 of Lhe 8evlsed enal Code as amended
WPL8LAS Lhese mlsgulded elemenLs of Lhe Armed lorces of Lhe hlllpplnes are
belng supporLed abeLLed and alded by known and unknown leaders consplraLors
and ploLLers ln Lhe governmenL servlce and ouLslde Lhe governmenL
WPL8LAS under SecLlon 18 ArLlcle vll of Lhe presenL ConsLlLuLlon whenever lL
becomes necessary Lhe resldenL as Lhe CommanderlnChlef of Lhe Armed lorces
of Lhe hlllpplnes may call ouL such Armed lorces Lo suppress Lhe rebelllon
nCW 1PL8LlC8L l CLC8lA MACAACALA88C?C by vlrLue of Lhe powers vesLed
ln me by law hereby conflrm Lhe exlsLence of an acLual and ongolng rebelllon
compelllng me Lo declare a sLaLe of rebelllon
ln vlew of Lhe foregolng l am lssulng Ceneral Crder no 4 ln accordance wlLh
SecLlon 18 ArLlcle vll of Lhe ConsLlLuLlon calllng ouL Lhe Armed lorces of Lhe
hlllpplnes and Lhe hlllpplne naLlonal ollce Lo lmmedlaLely carry ouL Lhe
necessary acLlons and measures Lo suppress and quell Lhe rebelllon wlLh due regard
Lo consLlLuLlonal rlghLs
Ceneral Crder no 4 ls slmllarly worded
CLnL8AL C8uL8 nC 4
ul8LC1lnC 1PL A8MLu lC8CLS Cl 1PL PlLllnLS Anu 1PL PlLllnL
nA1lCnAL CLlCL 1C Su8LSS 8L8LLLlCn
WPL8LAS cerLaln elemenLs of Lhe Armed lorces of Lhe hlllpplnes armed wlLh
hlghpowered flrearms and exploslves acLlng upon Lhe lnsLlgaLlon and command
and dlrecLlon of known and unknown leaders have selzed a bulldlng ln MakaLl ClLy
puL bombs ln Lhe area publlcly declared wlLhdrawal of supporL for and Look arms
agalnsL Lhe duly consLlLuLed CovernmenL and conLlnue Lo rlse publlcly and show
open hosLlllLy for Lhe purpose of removlng alleglance Lo Lhe CovernmenL cerLaln
bodles of Lhe Armed lorces of Lhe hlllpplnes and Lhe hlllpplne naLlonal ollce
and deprlvlng Lhe resldenL of Lhe 8epubllc of Lhe hlllpplnes wholly or parLlally of
her powers and prerogaLlves whlch consLlLuLe Lhe crlme of rebelllon punlshable
under ArLlcle 134 et sep of Lhe 8evlsed enal Code as amended
WPL8LAS Lhese mlsgulded elemenLs of Lhe Armed lorces of Lhe hlllpplnes are
belng supporLed abeLLed and alded by known and unknown leaders consplraLors
and ploLLers ln Lhe governmenL servlce and ouLslde Lhe governmenL
WPL8LAS under SecLlon 18 ArLlcle vll of Lhe presenL ConsLlLuLlon whenever lL
becomes necessary Lhe resldenL as Lhe CommanderlnChlef of all Armed lorces
of Lhe hlllpplnes may call ouL such Armed lorces Lo suppress Lhe rebelllon
nCW 1PL8LlC8L l CLC8lA MACAACALA88C?C by vlrLue of Lhe powers vesLed
ln me by Lhe ConsLlLuLlon as resldenL of Lhe 8epubllc of Lhe hlllpplnes and
CommanderlnChlef of all Lhe armed forces of Lhe hlllpplnes and pursuanL Lo
roclamaLlon no 427 daLed !uly 27 2003 do hereby call upon Lhe Armed lorces of
31

Lhe hlllpplnes and Lhe hlllpplne naLlonal ollce Lo suppress and quell Lhe
rebelllon
l hereby dlrecL Lhe Chlef of Lhe Armed lorces of Lhe hlllpplnes and Lhe Chlef of Lhe
hlllpplne naLlonal ollce and Lhe offlcers and men of Lhe Armed lorces of Lhe
hlllpplnes and Lhe hlllpplne naLlonal ollce Lo lmmedlaLely carry ouL Lhe
necessary and approprlaLe acLlons and measures Lo suppress and quell Lhe rebelllon
wlLh due regard Lo consLlLuLlonal rlghLs
8y Lhe evenlng of !uly 27 2003 Lhe Cakwood occupaLlon had ended AfLer hours
long negoLlaLlons Lhe soldlers agreed Lo reLurn Lo barracks 1he resldenL
however dld noL lmmedlaLely llfL Lhe declaraLlon of a sLaLe of rebelllon and dld so
only on AugusL 1 2003 Lhrough roclamaLlon no 433
uLCLA8lnC 1PA1 1PL S1A1L Cl 8L8LLLlCn PAS CLASLu 1C LxlS1
WPL8LAS by vlrLue of roclamaLlon no 427 daLed !uly 27 2003 a sLaLe of
rebelllon was declared
WPL8LAS by vlrLue of Ceneral Crder no 4 daLed !uly 27 2003 whlch was lssued
on Lhe basls of roclamaLlon no 427 daLed !uly 27 2003 and pursuanL Lo ArLlcle
vll SecLlon 18 of Lhe ConsLlLuLlon Lhe Armed lorces of Lhe hlllpplnes and Lhe
hlllpplne naLlonal ollce were dlrecLed Lo suppress and quell Lhe rebelllon
WPL8LAS Lhe Armed lorces of Lhe hlllpplnes and Lhe hlllpplne naLlonal ollce
have effecLlvely suppressed and quelled Lhe rebelllon
nCW 1PL8LlC8L l CLC8lA MACAACALA88C?C resldenL of Lhe hlllpplnes by
vlrLue of Lhe powers vesLed ln me by law hereby declare LhaL Lhe sLaLe of rebelllon
has ceased Lo exlsL
ln Lhe lnLerlm several peLlLlons were flled before Lhls CourL challenglng Lhe valldlLy
of roclamaLlon no 427 and Ceneral Crder no 4
ln C8 no 139083 (5oolokos ooJ lM v xecotlve 5ectetoty et ol)
2
parLyllsL
organlzaLlons Sanlakas and arLldo ng Manggagawa (M) conLend LhaL SecLlon 18
ArLlcle vll of Lhe ConsLlLuLlon does noL requlre Lhe declaraLlon of a sLaLe of rebelllon
Lo call ouL Lhe armed forces
3
1hey furLher submlL LhaL because of Lhe cessaLlon of
Lhe Cakwood occupaLlon Lhere exlsLs no sufflclenL facLual basls for Lhe
proclamaLlon by Lhe resldenL of a sLaLe of rebelllon for an lndeflnlLe perlod
4

eLlLloners ln C8 no 139103 (5I5 Offlcets/Membets v noo xecotlve 5ectetoty et
ol) are offlcers/members of Lhe Soclal !usLlce SocleLy (S!S) llllplno clLlzens
Laxpayers law professors and bar revlewers
3
Llke Sanlakas and M Lhey clalm
LhaL SecLlon 18 ArLlcle vll of Lhe ConsLlLuLlon does noL auLhorlze Lhe declaraLlon of
a sLaLe of rebelllon
6
1hey conLend LhaL Lhe declaraLlon ls a consLlLuLlonal
anomaly LhaL confuses confounds and mlsleads because overzealous publlc
offlcers acLlng pursuanL Lo such proclamaLlon or general order are llable Lo vlolaLe
Lhe consLlLuLlonal rlghL of prlvaLe clLlzens
7
eLlLloners also submlL LhaL Lhe
proclamaLlon ls a clrcumvenLlon of Lhe reporL requlremenL under Lhe same SecLlon
18 ArLlcle vll commandlng Lhe resldenL Lo submlL a reporL Lo Congress wlLhln 48
hours from Lhe proclamaLlon of marLlal law
8
llnally Lhey conLend LhaL Lhe
presldenLlal lssuances cannoL be consLrued as an exerclse of emergency powers as
Congress has noL delegaLed any such power Lo Lhe resldenL
9

ln C8 no 139183 (kep 5opllco et ol v lteslJeot MocopoqolAttoyo ooJ xecotlve
5ectetoty komolo) peLlLloners broughL sulL as clLlzens and as Members of Lhe
Pouse of 8epresenLaLlves whose rlghLs powers and funcLlons were allegedly
affecLed by Lhe declaraLlon of a sLaLe of rebelllon
10
eLlLloners do noL challenge Lhe
power of Lhe resldenL Lo call ouL Lhe Armed lorces
11
1hey argue however LhaL
Lhe declaraLlon of a sLaLe of rebelllon ls a superflulLy and ls acLually an exerclse of
emergency powers
12
Such exerclse lL ls conLended amounLs Lo a usurpaLlon of Lhe
power of Congress granLed by SecLlon 23 (2) ArLlcle vl of Lhe ConsLlLuLlon
13

ln C8 no 139196 (llmeotel v komolo et ol) peLlLloner SenaLor assalls Lhe
sub[ecL presldenLlal lssuances as an unwarranLed lllegal and abuslve exerclse of a
marLlal law power LhaL has no basls under Lhe ConsLlLuLlon
14
ln Lhe maln
peLlLloner fears LhaL Lhe declaraLlon of a sLaLe of rebelllon opens Lhe door Lo Lhe
unconsLlLuLlonal lmplemenLaLlon of warranLless arresLs for Lhe crlme of rebelllon
13

8equlred Lo commenL Lhe SollclLor Ceneral argues LhaL Lhe peLlLlons have been
rendered mooL by Lhe llfLlng of Lhe declaraLlon
16
ln addlLlon Lhe SollclLor Ceneral
quesLlons Lhe sLandlng of Lhe peLlLloners Lo brlng sulL
17

1he CourL agrees wlLh Lhe SollclLor Ceneral LhaL Lhe lssuance of roclamaLlon no
433 declarlng LhaL Lhe sLaLe of rebelllon has ceased Lo exlsL has rendered Lhe case
mooL As a rule courLs do noL ad[udlcaLe mooL cases [udlclal power belng llmlLed
Lo Lhe deLermlnaLlon of actua| conLroversles
18
neverLheless courLs wlll declde a
quesLlon oLherwlse mooL lf lL ls capable of repeLlLlon yeL evadlng revlew
19
1he
case aL bar ls one such case
Cnce before Lhe resldenL on May 1 2001 declared a sLaLe of rebelllon and called
upon Lhe Al and Lhe n Lo suppress Lhe rebelllon Lhrough roclamaLlon no 38
and Ceneral Crder no 1 Cn LhaL occaslon an angry and vlolenL mob armed wlLh
exploslves flrearms bladed weapons clubs sLones and oLher deadly weapons
assaulLed and aLLempLed Lo break lnLo Malacanang
20
eLlLlons were flled before
Lhls CourL assalllng Lhe valldlLy of Lhe resldenLs declaraLlon llve days afLer such
declaraLlon however Lhe resldenL llfLed Lhe same 1he mooLness of Lhe peLlLlons
ln Lacson v erez and accompanylng cases
21
precluded Lhls CourL from addresslng
Lhe consLlLuLlonallLy of Lhe declaraLlon
1o prevenL slmllar quesLlons from reemerglng we selze Lhls opporLunlLy Lo flnally
lay Lo resL Lhe valldlLy of Lhe declaraLlon of a sLaLe of rebelllon ln Lhe exerclse of Lhe
resldenLs calllng ouL power Lhe mooLness of Lhe peLlLlons noLwlLhsLandlng
Cnly peLlLloners 8ep Supllco et ol and Sen lmenLel as Members of Congress
have sLandlng Lo challenge Lhe sub[ecL lssuances ln lblllpploe coostltotloo
Assoclotloo v otlpoez
22
Lhls CourL recognlzed LhaL
1o Lhe exLenL Lhe powers of Congress are lmpalred so ls Lhe power of each
member Lhereof slnce hls offlce confers a rlghL Lo parLlclpaLe ln Lhe exerclse of Lhe
powers of LhaL lnsLlLuLlon
32

An acL of Lhe LxecuLlve whlch ln[ures Lhe lnsLlLuLlon of Congress causes a derlvaLlve
buL noneLheless subsLanLlal ln[ury whlch can be quesLloned by a member of
Congress ln such a case any member of Congress can have a resorL Lo Lhe courLs
eLlLloner Members of Congress clalm LhaL Lhe declaraLlon of a sLaLe of rebelllon by
Lhe resldenL ls LanLamounL Lo an exerclse of Congress emergency powers Lhus
lmpalrlng Lhe lawmakers leglslaLlve powers eLlLloners also malnLaln LhaL Lhe
declaraLlon ls a subLerfuge Lo avold congresslonal scruLlny lnLo Lhe resldenLs
exerclse of marLlal law powers
eLlLloners Sanlakas and M and S!S Cfflcers/Members have no legal sLandlng or
locos stooJl Lo brlng sulL Legal sLandlng or locos stooJl has been deflned as a
personal and subsLanLlal lnLeresL ln Lhe case such LhaL Lhe parLy has susLalned or
wlll susLaln dlrecL ln[ury as a resulL of Lhe governmenLal acL LhaL ls belng
challenged 1he glsL of Lhe quesLlon of sLandlng ls wheLher a parLy alleges such
personal sLake ln Lhe ouLcome of Lhe conLroversy as Lo assure LhaL concreLe
adverseness whlch sharpens Lhe presenLaLlon of lssues upon whlch Lhe courL
depends for lllumlnaLlon of dlfflculL consLlLuLlonal quesLlons
23

eLlLloners Sanlakas and M asserL LhaL
2 As a baslc prlnclple of Lhe organlzaLlons and as an lmporLanL plank ln Lhelr
programs peLlLloners are commlLLed Lo asserL defend proLecL uphold and
promoLe Lhe rlghLs lnLeresLs and welfare of Lhe people especlally Lhe poor and
marglnallzed classes and secLors of hlllpplne socleLy eLlLloners are commlLLed Lo
defend and asserL human rlghLs lncludlng pollLlcal and clvll rlghLs of Lhe clLlzens
3 Members of Lhe peLlLloner organlzaLlons resorL Lo mass acLlons and moblllzaLlons
ln Lhe exerclse of Lhelr ConsLlLuLlonal rlghLs Lo peaceably assemble and Lhelr
freedom of speech and of expresslon under 5ection 4 4rtic/e lll of Lhe 1987
Const|tut|on as a vehlcle Lo publlcly venLllaLe Lhelr grlevances and leglLlmaLe
demands and Lo moblllze publlc oplnlon Lo supporL Lhe same
24
Lmphasls ln Lhe
orlglnal
eLlLloner parLyllsL organlzaLlons clalm no beLLer rlghL Lhan Lhe Laban ng
uemokraLlkong lllplno whose sLandlng Lhls CourL re[ecLed ln locsoo v letez
peLlLloner has noL demonsLraLed any ln[ury Lo lLself whlch would [usLlfy Lhe resorL
Lo Lhe CourL eLlLloner ls a [urldlcal person noL sub[ecL Lo arresL 1hus lL cannoL
clalm Lo be LhreaLened by a warranLless arresL nor ls lL alleged LhaL lLs leaders
members and supporLers are belng LhreaLened wlLh warranLless arresL and
deLenLlon for Lhe crlme of rebelllon Lvery acLlon musL be broughL ln Lhe name of
Lhe parLy whose legal rlghLs has been lnvaded or lnfrlnged or whose legal rlghL ls
under lmmlnenL LhreaL of lnvaslon or lnfrlngemenL
AL besL Lhe lnsLanL peLlLlon may be consldered as an acLlon for declaraLory rellef
peLlLloner clalmlng LhaL lLs rlghL Lo freedom of expresslon and freedom of
assembly ls affecLed by Lhe declaraLlon of a sLaLe of rebelllon and LhaL sald
proclamaLlon ls lnvalld for belng conLrary Lo Lhe ConsLlLuLlon
Powever Lo conslder Lhe peLlLlon as one for declaraLory rellef affords llLLle comforL
Lo peLlLloner Lhls CourL noL havlng [urlsdlcLlon ln Lhe flrsL lnsLance over such a
peLlLlon SecLlon 3 1 ArLlcle vlll of Lhe ConsLlLuLlon llmlLs Lhe orlglnal [urlsdlcLlon
of Lhe courL Lo cases affecLlng ambassadors oLher publlc mlnlsLers and consuls and
over peLlLlons for cettlototl ptoblbltloo mooJomos poo wottooto and bobeos
cotpos
23

Lven assumlng LhaL peLlLloners are peoples organlzaLlons Lhls sLaLus would noL
vesL Lhem wlLh Lhe requlslLe personallLy Lo quesLlon Lhe valldlLy of Lhe presldenLlal
lssuances as Lhls CourL made clear ln kllosboyoo v Mototo
26

1he ConsLlLuLlon provldes LhaL Lhe SLaLe shall respecL Lhe role of lndependenL
peoples organlzaLlons Lo enable Lhe people Lo pursue and proLecL wlLhln Lhe
democraLlc framework Lhelr leglLlmaLe and collecLlve lnLeresLs and asplraLlons
Lhrough peaceful and lawful means LhaL Lhelr rlghL Lo effecLlve and reasonable
parLlclpaLlon aL all levels of soclal pollLlcal and economlc declslonmaklng shall noL
be abrldged (ArL xlll 1316)
1hese provlslons have noL changed Lhe LradlLlonal rule LhaL only teol pottles lo
lotetest ot tbose wltb stooJloq as Lhe case may be may lnvoke Lhe [udlclal power
1he [urlsdlcLlon of Lhls CourL even ln cases lnvolvlng consLlLuLlonal quesLlons ls
llmlLed by Lhe case and conLroversy requlremenL of ArL vlll 3 1hls requlremenL
lles aL Lhe very hearL of Lhe [udlclal funcLlon lL ls whaL dlfferenLlaLes declslonmaklng
ln Lhe courLs from declslonmaklng ln Lhe pollLlcal deparLmenLs of Lhe governmenL
and bars Lhe brlnglng of sulLs by [usL any parLy
27

1haL peLlLloner S!S offlcers/members are Laxpayers and clLlzens does noL
necessarlly endow Lhem wlLh sLandlng A Laxpayer may brlng sulL where Lhe acL
complalned of dlrecLly lnvolves Lhe lllegal dlsbursemenL of publlc funds derlved
from LaxaLlon
28
no such lllegal dlsbursemenL ls alleged
Cn Lhe oLher hand a clLlzen wlll be allowed Lo ralse a consLlLuLlonal quesLlon only
when he can show LhaL he has personally suffered some acLual or LhreaLened ln[ury
as a resulL of Lhe allegedly lllegal conducL of Lhe governmenL Lhe ln[ury ls falrly
Lraceable Lo Lhe challenged acLlon and Lhe ln[ury ls llkely Lo be redressed by a
favorable acLlon
29
Agaln no such ln[ury ls alleged ln Lhls case
Lven granLlng Lhese peLlLloners have sLandlng on Lhe ground LhaL Lhe lssues Lhey
ralse are of LranscendenLal lmporLance Lhe peLlLlons musL fall
lL ls Lrue LhaL for Lhe purpose of exerclslng Lhe calllng ouL power Lhe ConsLlLuLlon
does noL requlre Lhe resldenL Lo make a declaraLlon of a sLaLe of rebelllon SecLlon
18 ArLlcle vll provldes
Sec 18 1he resldenL shall be Lhe CommanderlnChlef of all armed forces of Lhe
hlllpplnes and henever |t becomes necessary he may ca|| out such armed
forces to prevent or suppress |a|ess v|o|ence |nvas|on or rebe|||on ln case of
lnvaslon or rebelllon when Lhe publlc safeLy requlres lL he may for a perlod noL
exceedlng slxLy days suspend Lhe prlvllege of Lhe wrlL of habeas corpus or place Lhe
hlllpplnes or any parL Lhereof under marLlal law WlLhln forLyelghL hours from Lhe
33

proclamaLlon of marLlal law or Lhe suspenslon of Lhe wrlL of habeas corpus Lhe
resldenL shall submlL a reporL ln person or ln wrlLlng Lo Lhe Congress 1he
Congress voLlng [olnLly by a voLe of aL leasL a ma[orlLy of all lLs Members ln regular
or speclal sesslon may revoke such proclamaLlon or suspenslon whlch revocaLlon
shall noL be seL aslde by Lhe resldenL upon Lhe lnlLlaLlve of Lhe resldenL Lhe
Congress may ln Lhe same manner exLend such proclamaLlon or suspenslon for a
perlod Lo be deLermlned by Lhe Congress lf Lhe lnvaslon or rebelllon shall perslsL
and publlc safeLy requlres lL
1he Congress lf noL ln sesslon shall wlLhln LwenLyfour hours followlng such
proclamaLlon or suspenslon convene ln accordance wlLh lLs rules wlLhouL need of a
call
1he Supreme CourL may revlew ln an approprlaLe proceedlng flled by any clLlzen
Lhe sufflclency of Lhe facLual basls for Lhe proclamaLlon of marLlal law or Lhe
suspenslon of Lhe prlvllege of Lhe wrlL of habeas corpus or Lhe exLenslon Lhereof
and musL promulgaLe lLs declslon Lhereon wlLhln LhlrLy days from lLs flllng
A sLaLe of marLlal law does noL suspend Lhe operaLlon of Lhe ConsLlLuLlon nor
supplanL Lhe funcLlonlng of Lhe clvll courLs or leglslaLlve assemblles nor auLhorlze
Lhe confermenL of Lhe [urlsdlcLlon on mlllLary courLs and agencles over clvlllans
where clvll courLs are able Lo funcLlon nor auLomaLlcally suspend Lhe prlvllege of
Lhe wrlL
1he suspenslon of Lhe prlvllege of Lhe wrlL shall apply only Lo persons [udlclally
charged for rebelllon or offenses lnherenL ln or dlrecLly connecLed wlLh lnvaslon
uurlng Lhe suspenslon of Lhe prlvllege of Lhe wrlL any person Lhus arresLed or
deLalned shall be [udlclally charged wlLhln Lhree days oLherwlse he shall be
released Lmphasls supplled
1he above provlslon granLs Lhe resldenL as CommanderlnChlef a sequence of
graduaLed powers
30
lrom Lhe mosL Lo Lhe leasL benlgn Lhese are Lhe calllng
ouL power Lhe power Lo suspend Lhe prlvllege of Lhe wrlL of bobeos cotpos and Lhe
power Lo declare marLlal law ln Lhe exerclse of Lhe laLLer Lwo powers Lhe
ConsLlLuLlon requlres Lhe concurrence of Lwo condlLlons namely an acLual lnvaslon
or rebelllon and LhaL publlc safeLy requlres Lhe exerclse of such power
31
Powever
as we observed ln loteqtoteJ 8ot of tbe lblllpploes v 2omoto
32
Lhese condlLlons
are noL requlred ln Lhe exerclse of Lhe calllng ouL power 1he only crlLerlon ls LhaL
whenever lL becomes necessary Lhe resldenL may call Lhe armed forces Lo
prevenL or suppress lawless vlolence lnvaslon or rebelllon
neverLheless lL ls equally Lrue LhaL SecLlon 18 ArLlcle vll does not expressly
prohlblL Lhe resldenL from declarlng a sLaLe of rebelllon noLe LhaL Lhe ConsLlLuLlon
vesLs Lhe resldenL noL only wlLh commooJetlocblef powers buL flrsL and
foremosL wlLh xecotlve powers
SecLlon 1 ArLlcle vll of Lhe 1987 hlllpplne ConsLlLuLlon sLaLes 1he execuLlve
power shall be vesLed ln Lhe resldenL As lf by exposlLlon SecLlon 17 of Lhe
same ArLlcle provldes Pe shall ensure LhaL Lhe laws be falLhfully execuLed 1he
provlslons Lrace Lhelr hlsLory Lo Lhe ConsLlLuLlon of Lhe unlLed SLaLes
1he speclflc provlslons of Lhe uS ConsLlLuLlon granLlng Lhe uS resldenL execuLlve
and commanderlnchlef powers have remalned ln Lhelr orlglnal slmple form slnce
Lhe hlladelphla ConsLlLuLlon of 1776 ArLlcle ll of whlch sLaLes ln parL
SecLlon 1 1 1he LxecuLlve ower shall be vesLed ln a resldenL of Lhe unlLed SLaLes
of Amerlca

SecLlon 2 1 1he resldenL shall be Commander ln Chlef of Lhe Army and navy of
Lhe unlLed SLaLes

SecLlon 3 he shall Lake care LhaL Lhe laws be falLhfully execuLed ArLlcle ll
LxecuLlve ower
8ecalllng ln hlsLorlcal vlgneLLes Lhe use by Lhe uS resldenL of Lhe abovequoLed
provlslons as [uxLaposed agalnsL Lhe correspondlng acLlon of Lhe uS Supreme
CourL ls lnsLrucLlve Clad wlLh Lhe prerogaLlves of Lhe offlce and endowed wlLh
soverelgn powers whlch are drawn chlefly from Lhe LxecuLlve ower and
CommanderlnChlef provlslons as well as Lhe presldenLlal oaLh of offlce Lhe
resldenL serves as Chlef of SLaLe or Chlef of CovernmenL CommanderlnChlef
Chlef of lorelgn 8elaLlons and Chlef of ubllc Cplnlon
33

llrsL Lo flnd deflnlLlve new plers for Lhe auLhorlLy of Lhe Chlef of SLaLe as Lhe
proLecLor of Lhe people was resldenL Andrew !ackson Comlng Lo offlce by vlrLue
of a pollLlcal revoluLlon !ackson as resldenL noL only kepL falLh wlLh Lhe people by
drlvlng Lhe paLrlclans from power Cld Plckory as he was fondly called was Lhe flrsL
resldenL Lo champlon Lhe lndlssolublllLy of Lhe unlon by defeaLlng SouLh Carollnas
nulllflcaLlon efforL
34

1he lederal 1arlff AcLs of 1828 and 1832 LhaL Congress enacLed dld noL paclfy Lhe
hoLspurs from SouLh Carollna lLs SLaLe LeglslaLure ordered an elecLlon for a
convenLlon whose members qulckly passed an Crdlnance of nulllflcaLlon 1he
Crdlnance declared Lhe 1arlff AcLs unconsLlLuLlonal prohlblLed SouLh Carollna
clLlzens from obeylng Lhem afLer a cerLaln daLe ln 1833 and LhreaLened secesslon lf
Lhe lederal CovernmenL soughL Lo oppose Lhe Larlff laws 1he LeglslaLure Lhen
lmplemenLed Lhe Crdlnance wlLh brlsLllng punlLlve laws almed aL any who soughL Lo
pay or collecL cusLoms duLles
33

!ackson blded hls Llme Pls Lask of enforcemenL would noL be easy 1echnlcally Lhe
resldenL mlghL send Lroops lnLo a SLaLe only lf Lhe Covernor called for help Lo
suppress an lnsurrecLlon whlch would noL occur ln Lhe lnsLance 1he resldenL
could also send Lroops Lo see Lo lL LhaL Lhe laws enacLed by Congress were falLhfully
execuLed 8uL Lhese laws were almed aL lndlvldual clLlzens and provlded no
enforcemenL machlnery agalnsL vlolaLlon by a SLaLe !ackson prepared Lo ask
Congress for a force blll
36

34

ln a leLLer Lo a frlend Lhe resldenL gave Lhe essence of hls poslLlon Pe wroLe
when a facLlon ln a SLaLe aLLempLs Lo nulllfy a consLlLuLlonal law of Congress or Lo
desLroy Lhe unlon Lhe balance of Lhe people composlng Lhls unlon have a perfecL
rlghL Lo coerce Lhem Lo obedlence 1hen ln a roclamaLlon he lssued on uecember
10 1832 he called upon SouLh Carollnlans Lo reallze LhaL Lhere could be no
peaceable lnLerference wlLh Lhe execuLlon of Lhe laws and dared Lhem dlsunlon
by armed force ls treason Are you ready Lo lncur lLs gullL?
37

1he roclamaLlon frlghLened nulllflers nonnulllflers and LlghLrope walkers Soon
SLaLe LeglslaLures began Lo adopL resoluLlons of agreemenL and Lhe resldenL
announced LhaL Lhe naLlonal volce from Malne on Lhe norLh Lo Loulslana on Lhe
souLh had declared nulllflcaLlon and accesslon conflned Lo conLempL and
lnfamy
38

no oLher resldenL enLered offlce faced wlLh problems so formldable and
enfeebled by personal and pollLlcal handlcaps so daunLlng as Abraham Llncoln
Llncoln belleved Lhe resldenLs power broad and LhaL of Congress expllclL and
resLrlcLed and soughL some source of execuLlve power noL falled by mlsuse or
wrecked by saboLage Pe selzed upon Lhe resldenLs deslgnaLlon by Lhe
ConsLlLuLlon as CommanderlnChlef coupled lL Lo Lhe execuLlve power provlslon
and [olned Lhem as Lhe war power whlch auLhorlzed hlm Lo do many Lhlngs
beyond Lhe compeLence of Congress
39

Llncoln embraced Lhe !ackson concepL of Lhe resldenLs lndependenL power and
duLy under hls oaLh dlrecLly Lo represenL and proLecL Lhe people ln hls Message of
!uly 4 1861 Llncoln declared LhaL Lhe LxecuLlve found Lhe duLy of employlng Lhe
war power ln defense of Lhe governmenL forced upon hlm Pe could noL buL
perform Lhe duLy or surrender Lhe exlsLence of Lhe CovernmenL 1hls concepL
began as a LranslLlon devlce Lo be valldaLed by Congress when lL assembled ln less
Lhan Lwoyears lL grew lnLo an lndependenL power under whlch he felL auLhorlzed
Lo suspend Lhe prlvllege of Lhe wrlL of bobeos cotpos lssue Lhe LmanclpaLlon
roclamaLlon and resLore reoccupled SLaLes
40

Llncolns roclamaLlon of Aprll 13 1861 called for 73000 Lroops 1helr flrsL servlce
accordlng Lo Lhe proclamaLlon would be Lo recapLure forLs places and properLy
Laklng care Lo avold any devasLaLlon any desLrucLlon of or lnLerference wlLh
properLy or any dlsLurbance of peaceful clLlzens
41

Larly ln 1863 Lhe uS Supreme CourL approved resldenL Llncolns reporL Lo use
Lhe war powers wlLhouL Lhe beneflL of Congress 1he declslon was handed ln Lhe
celebraLed ltlze coses
42
whlch lnvolved sulLs aLLacklng Lhe resldenLs rlghL Lo
legally lnsLlLuLe a blockade AlLhough hls roclamaLlon was subsequenLly valldaLed
by Congress Lhe clalmanLs conLended LhaL under lnLernaLlonal law a blockade
could be lnsLlLuLed only as a measure of war under Lhe soverelgn power of Lhe
SLaLe Slnce under Lhe ConsLlLuLlon only Congress ls excluslvely empowered Lo
declare war lL ls only LhaL body LhaL could lmpose a blockade and all prlzes selzed
before Lhe leglslaLlve declaraLlon were lllegal 8y a 3 Lo 4 voLe Lhe Supreme CourL
upheld Llncolns rlghL Lo acL as he had
43

ln Lhe course of Llme Lhe uS resldenLs power Lo call ouL armed forces and
suspend Lhe prlvllege of Lhe wrlL of bobeos cotpos wlLhouL prlor leglslaLlve
approval ln case of lnvaslon lnsurrecLlon or rebelllon came Lo be recognlzed and
accepLed 1he unlLed SLaLes lnLroduced Lhe expanded presldenLlal powers ln Lhe
hlllpplnes Lhrough Lhe hlllpplne 8lll of 1902
44
1he use of Lhe power was puL Lo
[udlclal LesL and Lhls CourL held LhaL Lhe case ralsed a pollLlcal quesLlon and sald
LhaL lL ls beyond lLs provlnce Lo lnqulre lnLo Lhe exerclse of Lhe power
43
LaLer Lhe
granL of Lhe power was lncorporaLed ln Lhe 1933 ConsLlLuLlon
46

LlecLed ln 1884 Crover Cleveland Look hls ascenL Lo Lhe presldency Lo mean LhaL lL
made hlm Lhe LrusLee of all Lhe people Culded by Lhe maxlm LhaL ubllc offlce ls a
publlc LrusL whlch he pracLlced durlng hls lncumbency Cleveland senL federal
Lroops Lo llllnols Lo quell sLrlklng rallway workers who defled a courL ln[uncLlon 1he
ln[uncLlon banned all plckeLlng and dlsLrlbuLlon of handbllls lor leadlng Lhe sLrlkes
and vlolaLlng Lhe ln[uncLlon uebs who was Lhe unlon presldenL was convlcLed of
conLempL of courL 8roughL Lo Lhe Supreme CourL Lhe prlnclpal lssue was by whaL
auLhorlLy of Lhe ConsLlLuLlon or sLaLuLe had Lhe resldenL Lo send Lroops wlLhouL
Lhe requesL of Lhe Covernor of Lhe SLaLe
47

ln lo ke oqeoe uebs et ol
48
Lhe Supreme CourL upheld Lhe conLempL convlcLlon lL
ruled LhaL lL ls noL Lhe governmenLs provlnce Lo mlx ln merely lndlvldual presenL
conLroversles SLlll so lL wenL on whenever wrongs complalned of are such as
affecL Lhe publlc aL large and are ln respecL of maLLers whlch by Lhe ConsLlLuLlon
are enLrusLed Lo Lhe care of Lhe naLlon and concernlng whlch Lhe naLlon owes Lhe
duLy Lo all clLlzens of securlng Lo Lhem Lhelr common rlghLs Lhen Lhe mere facL LhaL
Lhe CovernmenL has no pecunlary lnLeresL ln Lhe conLroversy ls noL sufflclenL Lo
exclude lL from Lhe CourLs or prevenL lL from Laklng measures Lhereln Lo fully
dlscharge Lhose consLlLuLlonal duLles
49
1hus Clevelands course had Lhe CourLs
aLLesL
1aklng off from resldenL Cleveland resldenL 1heodore 8oosevelL launched whaL
pollLlcal sclenLlsLs dub Lhe sLewardshlp Lheory Calllng hlmself Lhe sLeward of Lhe
people he felL LhaL Lhe execuLlve power was llmlLed only by Lhe speclflc
resLrlcLlons and prohlblLlons appearlng ln Lhe ConsLlLuLlon or lmpleaded by
Congress under lLs consLlLuLlonal powers
30

1he mosL farreachlng exLenslon of presldenLlal power 18 ever underLook Lo
employ was hls plan Lo occupy and operaLe ennsylvanlas coal mlnes under hls
auLhorlLy as CommanderlnChlef ln Lhe lssue he found means oLher Lhan force Lo
end Lhe 1902 hardcoal sLrlke buL he had made deLalled plans Lo use hls power as
CommanderlnChlef Lo wresL Lhe mlnes from Lhe sLubborn operaLors so LhaL coal
producLlon would begln agaln
31

LvenLually Lhe power of Lhe SLaLe Lo lnLervene ln and even Lake over Lhe operaLlon
of vlLal uLlllLles ln Lhe publlc lnLeresL was accepLed ln Lhe hlllpplnes Lhls led Lo Lhe
33

lncorporaLlon of SecLlon 6
32
ArLlcle xlll of Lhe 1933 ConsLlLuLlon whlch was laLer
carrled over wlLh modlflcaLlons ln SecLlon 7
33
ArLlcle xlv of Lhe 1973 ConsLlLuLlon
and LhereafLer ln SecLlon 18
34
ArLlcle xll of Lhe 1987 ConsLlLuLlon
1he lesson Lo be learned from Lhe uS consLlLuLlonal hlsLory ls LhaL Lhe
CommanderlnChlef powers are broad enough as lL ls and become more so when
Laken LogeLher wlLh Lhe provlslon on execuLlve power and Lhe presldenLlal oaLh of
offlce 1hus Lhe plenlLude of Lhe powers of Lhe presldency equlps Lhe occupanL
wlLh Lhe means Lo address exlgencles or LhreaLs whlch undermlne Lhe very
exlsLence of governmenL or Lhe lnLegrlLy of Lhe SLaLe
ln 1he hlllpplne resldency A SLudy of LxecuLlve ower Lhe laLe Mme !usLlce
lrene 8 CorLes proposed LhaL Lhe hlllpplne resldenL was vesLed wlLh resldual
power and LhaL Lhls ls even greaLer Lhan LhaL of Lhe uS resldenL She aLLrlbuLed
Lhls dlsLlncLlon Lo Lhe unlLary and hlghly cenLrallzed naLure of Lhe hlllpplne
governmenL She noLed LhaL 1here ls no counLerparL of Lhe several sLaLes of Lhe
Amerlcan unlon whlch have reserved powers under Lhe unlLed SLaLes consLlLuLlon
LlaboraLlng on Lhe consLlLuLlonal basls for her argumenL she wroLe
1he 1933 hlllpplne ConsLlLuLlon esLabllshes Lhe Lhree deparLmenLs of Lhe
governmenL ln Lhls manner 1he leglslaLlve power shall be vesLed ln a Congress of
Lhe hlllpplnes whlch shall conslsL of a SenaLe and a Pouse of 8epresenLaLlves
1he execuLlve power shall be vesLed ln a resldenL of Lhe hlllpplnes 1he [udlclal
powers shall be vesLed ln one Supreme CourL and ln such lnferlor courLs as may be
provlded by law 1hese provlslons noL only esLabllsh a separaLlon of powers by
acLual dlvlslon buL also confer plenary leglslaLlve execuLlve and [udlclal powers lor
as Lhe Supreme CourL of Lhe hlllpplnes polnLed ouL ln Ocompo v cobooqls a
granL of leglslaLlve power means a granL of all Lhe leglslaLlve power and a granL of
Lhe [udlclal power means a granL of all Lhe [udlclal power whlch may be exerclsed
under Lhe governmenL lf Lhls ls Lrue of Lhe leglslaLlve power whlch ls exerclsed by
Lwo chambers wlLh a comblned membershlp aL LhaL Llme of more Lhan 120 and of
Lhe [udlclal power whlch ls vesLed ln a hlerarchy of courLs lL can equally lf noL more
approprlaLely apply Lo Lhe execuLlve power whlch ls vesLed ln one offlclal Lhe
presldenL Pe personlfles Lhe execuLlve branch 1here ls a unlLy ln Lhe execuLlve
branch absenL from Lhe Lwo oLher branches of governmenL 1he presldenL ls noL Lhe
chlef of many execuLlves Pe ls Lhe execuLlve Pls dlrecLlon of Lhe execuLlve branch
can be more lmmedlaLe and dlrecL Lhan Lhe unlLed SLaLes presldenL because he ls
glven by express provlslon of Lhe consLlLuLlon conLrol over all execuLlve
deparLmenLs bureaus and offlces
33

1he esLeemed !usLlce conducLed her sLudy agalnsL Lhe backdrop of Lhe 1933
ConsLlLuLlon Lhe framers of whlch early on arrlved aL a general oplnlon ln favor of
a sLrong LxecuLlve ln Lhe hlllpplnes
36
Slnce Lhen reellng from Lhe afLermaLh of
marLlal law our mosL recenL CharLer has resLrlcLed Lhe resldenLs powers as
CommanderlnChlef 1he same however cannoL be sald of Lhe resldenLs powers
as Chlef LxecuLlve
ln her ponencla ln Marcos v Manglapus !usLlce CorLes puL her Lhesls lnLo
[urlsprudence 1here Lhe CourL by a sllm 87 margln upheld Lhe resldenLs power
Lo forbld Lhe reLurn of her exlled predecessor 1he raLlonale for Lhe ma[orlLys rullng
resLed on Lhe resldenLs
unsLaLed resldual powers whlch are lmplled from Lhe granL of execuLlve power
and whlch are necessary for her Lo comply wlLh her duLles under Lhe ConsLlLuLlon
1he powers of Lhe resldenL are noL llmlLed Lo whaL are expressly enumeraLed ln
Lhe arLlcle on Lhe LxecuLlve ueparLmenL and ln scaLLered provlslons of Lhe
ConsLlLuLlon 1hls ls so noLwlLhsLandlng Lhe avowed lnLenL of Lhe members of Lhe
ConsLlLuLlonal Commlsslon of 1986 Lo llmlL Lhe powers of Lhe resldenL as a
reacLlon Lo Lhe abuses under Lhe reglme of Mr Marcos for Lhe resulL was a
llmltotloo of speclflc powets of Lhe resldenL parLlcularly Lhose relaLlng Lo Lhe
commanderlnchlef clause buL oot o Jlmlootloo of tbe qeoetol qtoot of execotlve
powet
37
underscorlng supplled lLallcs ln Lhe orlglnal
1hus Lhe resldenLs auLhorlLy Lo declare a sLaLe of rebelllon sprlngs ln Lhe maln
from her powers as chlef execuLlve and aL Lhe same Llme draws sLrengLh from her
CommanderlnChlef powers lndeed as Lhe SollclLor Ceneral accuraLely polnLs ouL
sLaLuLory auLhorlLy for such a declaraLlon may be found ln SecLlon 4 ChapLer 2
(Crdlnance ower) 8ook lll (Cfflce of Lhe resldenL) of Lhe 8evlsed AdmlnlsLraLlve
Code of 1987 whlch sLaLes
SLC 4 ltoclomotloos AcLs of Lhe resldenL flxlng a daLe or declarlng a sLaLus or
condlLlon of publlc momenL or lnLeresL upon the ex|stence of h|ch the operat|on
of a spec|f|c |a or regu|at|on |s made to depend shall be promulgaLed ln
ptoclomotloos whlch shall have Lhe force of an execuLlve order Lmphasls
supplled
1he foregolng dlscusslon noLwlLhsLandlng ln calllng ouL Lhe armed forces a
declaraLlon of a sLaLe of rebelllon ls an uLLer superflulLy
38
AL mosL lL only glves
noLlce Lo Lhe naLlon LhaL such a sLaLe exlsLs and LhaL Lhe armed forces may be called
Lo prevenL or suppress lL
39
erhaps Lhe declaraLlon may wreak emoLlonal effecLs
upon Lhe percelved enemles of Lhe SLaLe even on Lhe enLlre naLlon 8uL Lhls CourLs
mandaLe ls Lo probe only lnLo Lhe legal consequences of Lhe declaraLlon 1hls CourL
flnds LhaL such a declaraLlon ls devold of any legal slgnlflcance lor all legal lnLenLs
Lhe declaraLlon ls deemed noL wrlLLen
Should Lhere be any confuslon generaLed by Lhe lssuance of roclamaLlon no 427
and Ceneral Crder no 4 we clarlfy LhaL as Lhe dlssenLers ln locsoo correcLly
polnLed ouL Lhe mere declaraLlon of a sLaLe of rebelllon cannoL dlmlnlsh or vlolaLe
consLlLuLlonally proLecLed rlghLs
60
lndeed lf a sLaLe of marLlal law does noL
suspend Lhe operaLlon of Lhe ConsLlLuLlon or auLomaLlcally suspend Lhe prlvllege of
Lhe wrlL of habeas corpus
61
Lhen lL ls wlLh more reason LhaL a slmple declaraLlon of
a sLaLe of rebelllon could noL brlng abouL Lhese condlLlons
62
AL any raLe Lhe
presldenLlal lssuances Lhemselves call for Lhe suppresslon of Lhe rebelllon wlLh due
regard Lo consLlLuLlonal rlghLs
36

lor Lhe same reasons apprehenslons LhaL Lhe mlllLary and pollce auLhorlLles may
resorL Lo warranLless arresLs are llkewlse unfounded ln locsoo vs letez sopto
ma[orlLy of Lhe CourL held LhaL ln quelllng or suppresslng Lhe rebelllon Lhe
auLhorlLles may only resorL Lo warranLless arresLs of persons suspecLed of rebelllon
as provlded under SecLlon 3 8ule 113 of Lhe 8ules of CourL
63
lf Lhe clrcumsLances
so warranL 1he warranLless arresL feared by peLlLloners ls Lhus noL based on Lhe
declaraLlon of a sLaLe of rebelllon
64
ln oLher words a person may be sub[ecLed Lo
a warranLless arresL for Lhe crlme of rebelllon wheLher or noL Lhe resldenL has
declared a sLaLe of rebelllon so long as Lhe requlslLes for a valld warranLless arresL
are presenL
lL ls noL dlspuLed LhaL Lhe resldenL has full dlscreLlonary power Lo call ouL Lhe
armed forces and Lo deLermlne Lhe necesslLy for Lhe exerclse of such power Whlle
Lhe CourL may examlne wheLher Lhe power was exerclsed wlLhln consLlLuLlonal
llmlLs or ln a manner consLlLuLlng grave abuse of dlscreLlon none of Lhe peLlLloners
here have by way of proof supporLed Lhelr asserLlon LhaL Lhe resldenL acLed
wlLhouL facLual basls
63

1he argumenL LhaL Lhe declaraLlon of a sLaLe of rebelllon amounLs Lo a declaraLlon
of marLlal law and Lherefore ls a clrcumvenLlon of Lhe reporL requlremenL ls a leap
of loglc 1here ls no lndlcaLlon LhaL mlllLary Lrlbunals have replaced clvll courLs ln
Lhe LheaLer of war or LhaL mlllLary auLhorlLles have Laken over Lhe funcLlons of
clvll governmenL 1here ls no allegaLlon of curLallmenL of clvll or pollLlcal rlghLs
1here ls no lndlcaLlon LhaL Lhe resldenL has exerclsed [udlclal and leglslaLlve
powers ln shorL Lhere ls no lllusLraLlon LhaL Lhe resldenL has aLLempLed Lo
exerclse or has exerclsed marLlal law powers
nor by any sLreLch of Lhe lmaglnaLlon can Lhe declaraLlon consLlLuLe an lndlrecL
exerclse of emergency powers whlch exerclse depends upon a granL of Congress
pursuanL Lo SecLlon 23 (2) ArLlcle vl of Lhe ConsLlLuLlon
Sec 23 (1)
(2) ln Llmes of war or oLher naLlonal emergency Lhe Congress may by law
auLhorlze Lhe resldenL for a llmlLed perlod and sub[ecL Lo such resLrlcLlons as lL
may prescrlbe Lo exerclse powers necessary and proper Lo carry ouL a declared
naLlonal pollcy unless sooner wlLhdrawn by resoluLlon of Lhe Congress such
powers shall cease upon Lhe nexL ad[ournmenL Lhereof
1he peLlLlons do noL clLe a speclflc lnsLance where Lhe resldenL has aLLempLed Lo
or has exerclsed powers beyond her powers as Chlef LxecuLlve or as Commander
lnChlef 1he resldenL ln declarlng a sLaLe of rebelllon and ln calllng ouL Lhe armed
forces was merely exerclslng a weddlng of her Chlef LxecuLlve and Commanderln
Chlef powers 1hese are pure|y execut|ve powers vesLed on Lhe resldenL by
SecLlons 1 and 18 ArLlcle vll as opposed Lo Lhe de|egated |eg|s|at|ve powers
conLemplaLed by SecLlon 23 (2) ArLlcle vl
JLkLICkL Lhe peLlLlons are hereby DISMISSLD
SC CkDLkLD

DCMINGC VS CAkAGUL
Gk No 16106S Apr|| 1S 200S
SANDCVALGU1ILkkL2
!udlclal power ls Lhe power Lo hear and declde cases pendlng beLween parLles who
have Lhe rlghL Lo sue ln courLs of law and equlLy1 Corollary Lo Lhls dlcLum ls Lhe
prlnclple of locos stooJl of a llLlganL Pe who ls dlrecLly affecLed and whose lnLeresL
ls lmmedlaLe and subsLanLlal has Lhe sLandlng Lo sue 1hus a parLy musL show a
personal sLake ln Lhe ouLcome of Lhe case or an ln[ury Lo hlmself LhaL can be
redressed by a favorable declslon ln order Lo warranL an lnvocaLlon of Lhe courLs
[urlsdlcLlon and [usLlfy Lhe exerclse of [udlclal power on hls behalf
Assalled ln Lhls peLlLlon for cettlototl ls Lhe legallLy of 8esoluLlon no 200203 of Lhe
Commlsslon on AudlL (CCA) provldlng for CrganlzaLlonal 8esLrucLurlng lan 1he
abovenamed peLlLloners baslcally alleged Lhereln LhaL Lhls lan ls lnLrlnslcally vold
for wanL of an enabllng law auLhorlzlng CCA Lo underLake Lhe same and provldlng
for Lhe necessary sLandards condlLlons resLrlcLlons llmlLaLlons guldellnes and
parameLers eLlLloners furLher alleged LhaL ln lnlLlaLlng such CrganlzaLlonal
8esLrucLurlng lan wlLhouL legal auLhorlLy CCA commlLLed grave abuse of
dlscreLlon amounLlng Lo lack or excess of [urlsdlcLlon
AL Lhls polnL lL ls perLlnenL Lo sLaLe LhaL Lhe CCA ls a quasl[udlclal body and LhaL lLs
declslon order or rullng may be broughL Lo Lhe Supreme CourL on cettlototl by Lhe
aggrleved parLy2
eLlLloners Lufemlo C uomlngo Celso C Cangan ascaslo S 8anarla are reLlred
Chalrmen whlle Sofronlo 8 ursal and AlberLo Cruz are reLlred Commlssloners of
CCA All clalm Lo malnLaln a deepseaLed abldlng lnLeresL ln Lhe affalrs of CCA3
especlally ln lLs CrganlzaLlonal 8esLrucLurlng lan as concerned Laxpayers
1he oLher peLlLloners are lncumbenL offlcers or employees of CCA Marla L MaLlb
and Angelo C Sanchez are SLaLe AudlLor lll and SLaLe AudlLor ll respecLlvely
asslgned Lo Lhe Cordlllera AdmlnlsLraLlve 8eglon (CA8) rlor Lo Lhe lmplemenLaLlon
of Lhe quesLloned CCA CrganlzaLlonal 8esLrucLurlng lan Lhey were 8esldenL
AudlLors and laLer AudlL 1eam Leaders eLlLloner 8achel u acpaco ls a SLaLe
AudlLor lll asslgned Lo CA8 and a 1eam Supervlsor whlle peLlLloner Sherwln A Slpl
an ls a SLaLe AudlLor l also asslgned aL Lhe CA8 1hese peLlLloners clalm LhaL Lhey
were unceremonlously dlvesLed of Lhelr deslgnaLlons/ranks as unlL Pead 1eam
Supervlsor and 1eam Leader upon lmplemenLaLlon of Lhe CCA CrganlzaLlonal
8esLrucLurlng lan wlLhouL [usL cause and wlLhouL due process ln vlolaLlon of Clvll
Servlce Law Moreover Lhey were deprlved of Lhelr respecLlve 8epresenLaLlon and
1ransporLaLlon Allowances (8A1A) Lhus causlng Lhem undue flnanclal pre[udlce
eLlLloners now lnvoke Lhls CourLs [udlclal power Lo sLrlke down Lhe CCA
CrganlzaLlonal 8esLrucLurlng lan for belng unconsLlLuLlonal or lllegal
lnlLlally for our resoluLlon ls Lhe lssue of wheLher peLlLloners have Lhe legal
sLandlng Lo lnsLlLuLe Lhe lnsLanL peLlLlon
37

eLlLloners lnvoke our rullng ln cbovez v lobllc stotes Aotbotlty 4 Aqoo It v
lblllpploe lotetootloool Alt 1etmlools co loc 3 and lofotmotloo 1ecbooloqy
loooJotloo of tbe lblllpploes v commlssloo oo lectloos 6 LhaL where Lhe sub[ecL
maLLer of a case ls a maLLer of publlc concern and lmbued wlLh publlc lnLeresL Lhen
Lhls facL alone glves Lhem legal sLandlng Lo lnsLlLuLe Lhe lnsLanL peLlLlon eLlLloners
conLend LhaL Lhe CCA CrganlzaLlonal 8esLrucLurlng lan ls noL [usL a mere
reorganlzaLlon buL a revamp or overhaul of Lhe CCA wlLh a splllover effecL upon lLs
audlL performance 1hls wlll have an lmpacL upon Lhe resL of Lhe governmenL
bodles sub[ecL Lo lLs audlL supervlslon Lhus should be LreaLed as a maLLer of
LranscendenLal lmporLance ConsequenLly peLlLloners legal sLandlng should be
recognlzed and upheld
8espondenLs Lhrough Lhe Cfflce of Lhe SollclLor Ceneral (CSC) counLer LhaL
peLlLloners have no legal sLandlng Lo flle Lhe presenL peLlLlon slnce followlng our
rullng ln kllosooq Moyo uoo lobot ceotet v Cotclo It 7 Lhey have noL shown a
personal sLake ln Lhe ouLcome of Lhe case or an acLual or poLenLlal ln[ury LhaL can
be redressed by our favorable declslon eLlLloners Lhemselves admlLLed LhaL Lhey
do noL seek any afflrmaLlve rellef nor lmpuLe any lmproper or lmprovldenL acL
agalnsL Lhe sald respondenLs and are noL moLlvaLed by any deslre Lo seek
afflrmaLlve rellef from CCA or from respondenLs LhaL would redound Lo Lhelr
personal beneflL or galn lL ls clear Lhen LhaL peLlLloners falled Lo show any presenL
subsLanLlal lnLeresL ln Lhe ouLcome of Lhls case clLlng kllosboyoo v Mototo8 nor
may peLlLloners clalm LhaL as Laxpayers Lhey have legal sLandlng slnce nowhere ln
Lhelr peLlLlon do Lhey clalm LhaL publlc funds are belng spenL ln vlolaLlon of law or
LhaL Lhere ls a mlsappllcaLlon of Lhe Laxpayers money as we ruled ln uomloo v
comelec9
eLlLloners rellance upon our rullngs ln cbovez 10 Aqoo It 11 and lofotmotloo
1ecbooloqy loooJotloo 12 ls flawed
ln cbovez we ruled LhaL Lhe peLlLloner has legal sLandlng slnce he ls a Laxpayer and
hls purpose ln flllng Lhe peLlLlon ls Lo compel Lhe ubllc LsLaLe AuLhorlLy (LA) Lo
perform lLs consLlLuLlonal duLles wlLh respecL Lo (a) Lhe rlghL of Lhe clLlzens Lo
lnformaLlon on maLLers of publlc concern and (b) Lhe appllcaLlon of a consLlLuLlonal
provlslon lnLended Lo lnsure Lhe equlLable dlsLrlbuLlon of allenable lands of Lhe
publlc domaln among llllplno clLlzens 1he LhrusL of Lhe flrsL ls Lo compel LA Lo
dlsclose publlcly lnformaLlon on Lhe sale of CovernmenL lands worLh bllllons of
pesos as mandaLed by Lhe ConsLlLuLlon and sLaLuLory law 1he LhrusL of Lhe second
ls Lo prevenL LA from allenaLlng hundreds of hecLares of allenable lands of Lhe
publlc domaln Lhereby compelllng lL Lo comply wlLh a consLlLuLlonal duLy Lo Lhe
naLlon We held LhaL Lhese maLLers are of LranscendenLal publlc lmporLance13
ln Aqoo It we held LhaL peLlLloners have legal sLandlng as Lhey have a dlrecL and
subsLanLlal lnLeresL Lo proLecL 8y Lhe lmplemenLaLlon of Lhe lA1CC conLracLs Lhey
sLand Lo lose Lhelr source of llvellhood a properLy rlghL zealously proLecLed by Lhe
ConsLlLuLlon Such flnanclal pre[udlce on Lhelr parL ls sufflclenL Lo confer upon Lhem
Lhe requlslLe locos stooJl14
ln lofotmotloo 1ecbooloqy loooJotloo Lhere were Lwo reasons why peLlLloners
sLandlng was recognlzed llrsL Lhe naLlons pollLlcal and economlc fuLure vlrLually
hangs ln Lhe balance pendlng Lhe ouLcome of Lhe 2004 elecLlons Accordlngly Lhe
award for Lhe auLomaLlon of Lhe elecLoral process was a maLLer of publlc concern
lmbued wlLh publlc lnLeresL Second Lhe lndlvldual peLlLloners as Laxpayers
asserLed a maLerlal lnLeresL ln seelng Lo lL LhaL publlc funds are properly used
Pere peLlLloners have noL shown any d|rect and persona| |nterest ln Lhe CCA
CrganlzaLlonal 8esLrucLurlng lan 1here ls no lndlcaLlon LhaL Lhey have susLalned or
are ln lmmlnenL danger of susLalnlng some dlrecL ln[ury as a resulL of lLs
lmplemenLaLlon ln facL Lhey admlLLed LhaL Lhey do noL seek any afflrmaLlve rellef
nor lmpuLe any lmproper or lmprovldenL acL agalnsL Lhe respondenLs and are noL
moLlvaLed by any deslre Lo seek afflrmaLlve rellef from CCA or from respondenLs
LhaL would redound Lo Lhelr personal beneflL or galn Clearly Lhey do noL have any
legal sLandlng Lo flle Lhe lnsLanL sulL
We are well aware of Lhe avermenLs of peLlLloners MaLlb acpaco Sanchez and
SlplAn LhaL Lhey were demoLed and unceremonlously dlvesLed of Lhelr prevlous
deslgnaLlons as unlL Pead 1eam Supervlsor or 1eam Leader LhaL Lhey were
deprlved of Lhelr 8A1A LhaL Lhey were relegaLed Lo belng mere 1eam Members
enLlLled Lo only a relmbursable LransporLaLlon allowance and LhaL Lhey were
denled due process
Such avermenLs lack merlL AcLually Lhey were noL demoLed under SecLlon 11
8ule vll of Lhe Cmnlbus 8ules lmplemenLlng 8ook v of Lhe AdmlnlsLraLlve Code of
1987 a demoLlon ls Lhe movemenL from one poslLlon Lo anoLher |nvo|v|ng the
|ssuance of an appo|ntment wlLh dlmlnuLlon ln duLles responslblllLles sLaLus or
rank whlch may or may noL lnvolve reducLlon ln salary13 A demoLlon by asslgnlng
an employee Lo a lower poslLlon ln Lhe same servlce whlch has a lower raLe of
compensaLlon ls LanLamounL Lo removal lf no cause ls shown for lL16
Pere Lhere have been no new appolnLmenLs lssued Lo MaLlb acpaco Sanchez
and SlplAn under Lhe CCA CrganlzaLlonal 8esLrucLurlng lan 1hus Lhelr conLenLlon
LhaL Lhey have been demoLed ls baseless
Moreover Lhe change ln Lhelr sLaLus from CCA audlLors (recelvlng monLhly 8A1A)
Lo CCA audlLors (recelvlng only relmbursable 8A1A) cannoL be aLLrlbuLed Lo Lhe
CCA CrganlzaLlonal 8esLrucLurlng lan buL Lo Lhe lmplemenLaLlon of Lhe AudlL
1eam Approach (A1A) pursuanL Lo CCA 8esoluLlon no 96303 daLed Aprll 16
1996
under Lhe A1A an audlL Leam noL a resldenL audlLor ls deployed Lo conducL an
audlL An audlL Leam may be composed of Lwo (2) or more members under an AudlL
1eam Leader Whenever pracLlcable an AudlL 1eam Supervlsor supervlses aL leasL
Lhree (3) audlL Leams 1he composlLlon of an audlL Leam ls noL permanenL Pence
an AudlL 1eam Member may be deslgnaLed or asslgned as an AudlL 1eam Leader for
38

one asslgnmenL and subsequenLly as a 1eam Member ln anoLher engagemenL 1he
deslgnaLlon depends upon Lhe poslLlon or rank of Lhe one who ls deslgnaLed as an
AudlL 1eam Leader 1hus a SLaLe AudlLor lll who may have been asslgned as an
AudlL 1eam Leader ln one engagemenL may flnd hlmself relegaLed Lo belng an AudlL
1eam Member ln anoLher engagemenL lf a SLaLe AudlLor lv or SLaLe AudlLor v ls
deslgnaLed as Lhe AudlL 1eam Leader
ursuanL Lo Lhe CCA CrganlzaLlonal 8esLrucLurlng lan Lhe CCA lssued
Memorandum no 200203417 provldlng for Lhe guldellnes regardlng Lhe paymenL
of 8A1A Lhus
1 All holders of SLaLe AudlLor lv poslLlon shall be enLlLled Lo flxed commuLable
8A1A wherever Lhey are asslgned
2 PenceforLh only SLaLe AudlLors lv shall be asslgned as new unlL Peads or 1eam
Leaders
3 SLaLe AudlLors below SLaLe AudlLor lv asslgned as unlL Peads or 1eam Leaders
who have been recelvlng flxed 8A1A shall conLlnue Lo be deslgnaLed as such and Lo
recelve Lhe 8A1A unLll relleved of Lhe deslgnaLlon for lncompeLence lnefflclency or
mlsconducL
All oLhers who collecL 8A1A on relmbursable basls lncludlng Lhose pald on a dally
basls under CCA 8esoluLlon no 99007 daLed !une 7 1999 are llkewlse enLlLled
LhereLo
MaLlb acpaco Sanchez and SlplAn are noL quallfled Lo be AudlL 1eam Leaders or
Lo recelve flxed monLhly 8A1A slnce none of Lhem holds Lhe rank or poslLlon of
SLaLe AudlLor lv 8uL Lhls does noL mean LhaL Lhey are noL enLlLled Lo recelve
relmbursable 8A1A lf Lhey are deslgnaLed as AudlL 1eam Leaders lL ls clear from Lhe
LexL of Lhe sald CCA Memorandum LhaL Lhe prlnclple of nondlmlnuLlon of beneflLs
has been upheld
1hus ln Lhe lmplemenLaLlon of Lhe CCA CrganlzaLlonal 8esLrucLurlng lan we fall
Lo see how peLlLloners could have susLalned personal ln[ury as Lhey have noL shown
Lo have a personal sLake Lhereln Accordlngly Lhey are wanLlng ln legal sLandlng Lo
lnsLlLuLe Lhe lnsLanL peLlLlon Corollarlly we flnd no reason Lo delve lnLo Lhe
consLlLuLlonallLy or legallLy of Lhe CCA CrganlzaLlonal 8esLrucLurlng lan
JLkLICkL Lhe peLlLlon ls ulSMlSSLu no pronouncemenL as Lo cosLs
SC CkDLkLD
SALCNGA VS 9ANC
Gk No LS9S24 Iebruary 18 198S

Cu1lL88LZ !8 I
1he peLlLloner lnvokes Lhe consLlLuLlonally proLecLed rlghL Lo llfe and llberLy
guaranLeed by Lhe due process clause alleglng LhaL no prlma facle case has been
esLabllshed Lo warranL Lhe flllng of an lnformaLlon for subverslon agalnsL hlm
eLlLloner asks Lhls CourL Lo prohlblL and prevenL Lhe respondenLs from uslng Lhe
lron arm of Lhe law Lo harass oppress and persecuLe hlm a member of Lhe
democraLlc opposlLlon ln Lhe hlllpplnes
1he background of Lhls case ls a maLLer of publlc knowledge
A rash of bomblngs occurred ln Lhe MeLro Manlla area ln Lhe monLhs of AugusL
SepLember and CcLober of 1980 Cn SepLember 6 1980 one vlcLor 8urns Lovely
!r a hlllpplneborn Amerlcan clLlzen from Los Angeles Callfornla almosL kllled
hlmself and ln[ured hls younger broLher 8omeo as a resulL of Lhe exploslon of a
small bomb lnslde hls room aL Lhe ?MCA bulldlng ln Manlla lound ln Lovelys
possesslon by pollce and mlllLary auLhorlLles were several plcLures Laken someLlme
ln May 1980 aL Lhe blrLhday parLy of former Congressman 8aul uaza held aL Lhe
laLLers resldence ln a Los Angeles suburb eLlLloner !ovlLo 8 Salonga and hls wlfe
were among Lhose whose llkenesses appeared ln Lhe group plcLures LogeLher wlLh
oLher guesLs lncludlng Lovely
As a resulL of Lhe serlous ln[urles he suffered Lovely was broughL by mlllLary and
pollce auLhorlLles Lo Lhe Al Medlcal CenLer (v Luna PosplLal) where he was placed
ln Lhe cusLody and deLenLlon of Col 8oman Madella under Lhe overall dlrecLlon
of Ceneral lablan ver head of Lhe naLlonal lnLelllgence and SecurlLy AuLhorlLy
(nlSA) ShorLly afLerwards Mr Lovely and hls Lwo broLhers 8omeo and 8alLazar
Lovely were charged wlLh subverslon lllegal possesslon of exploslves and damage
Lo properLy
Cn SepLember 12 1980 bombs once agaln exploded ln MeLro Manlla lncludlng one
whlch resulLed ln Lhe deaLh of an Amerlcan lady who was shopplng aL 8usLans
SupermarkeL ln MakaLl and oLhers whlch caused ln[urles Lo a number of persons
Cn SepLember 20 1980 Lhe resldenLs annlversary Lelevlslon radlo press
conference was broadcasL 1he younger broLher of vlcLor Lovely 8omeo was
presenLed durlng Lhe conference ln hls lnLervlew 8omeo sLaLed LhaL he had drlven
hls elder broLher vlcLor Lo Lhe peLlLloners house ln Creenhllls on Lwo occaslons
1he flrsL Llme was on AugusL 20 1980 8omeo sLaLed LhaL vlcLor dld noL brlng any
bag wlLh hlm on LhaL day when he wenL Lo Lhe peLlLloners resldence and dld noL
carry a bag when he lefL 1he second Llme was ln Lhe afLernoon of AugusL 31 1980
when he broughL vlcLor only Lo Lhe gaLe of Lhe peLlLloners house 8omeo dld noL
enLer Lhe peLlLloners resldence nelLher dld he reLurn LhaL day Lo plck up hls
broLher
1he nexL day newspapers came ouL wlLh almosL ldenLlcal headllnes sLaLlng ln effecL
LhaL peLlLloner had been llnked Lo Lhe varlous bomblngs ln MeLro Manlla
Meanwhlle on SepLember 23 1980 Lovely was Laken ouL of Lhe hosplLals lnLenslve
care unlL and Lransferred Lo Lhe offlce of Col Madella where he was held
lncommunlcado for some Llme
Cn Lhe nlghL of CcLober 4 1980 more bombs were reporLed Lo have exploded aL
Lhree blg hoLels ln MeLro Manlla namely hlllpplne laza CenLury ark SheraLon
and Manlla enlnsula 1he bombs ln[ured nlne people A meeLlng of Lhe Ceneral
MlllLary Councll was called for CcLober 6 1980
39

Cn CcLober 19 1980 mlnuLes afLer Lhe resldenL had flnlshed dellverlng hls speech
before Lhe lnLernaLlonal Conference of Lhe Amerlcan SocleLy of 1ravel AgenLs aL Lhe
hlllpplne lnLernaLlonal ConvenLlon CenLer a small bomb exploded WlLhln Lhe nexL
LwenLyfour hours arresL search and selzure orders (ASSCs) were lssued agalnsL
persons who were apparenLly lmpllcaLed by vlcLor Lovely ln Lhe serles of bomblngs
ln MeLro Manlla Cne of Lhem was hereln peLlLloner vlcLor Lovely offered hlmself
Lo be a sLaLe wlLness and ln hls leLLer Lo Lhe resldenL he sLaLed LhaL he wlll
reveal everyLhlng he knows abouL Lhe bomblngs
Cn CcLober 21 1980 elemenLs of Lhe mlllLary wenL Lo Lhe hosplLal room of Lhe
peLlLloner aL Lhe Manlla Medlcal CenLer where he was conflned due Lo hls recurrenL
and chronlc allmenL of bronchlal asLhma and placed hlm under arresL 1he arresLlng
offlcer showed Lhe peLlLloner Lhe ASSC form whlch however dld noL speclfy Lhe
charge or charges agalnsL hlm lor some Llme Lhe peLlLloners lawyers were noL
permlLLed Lo vlslL hlm ln hls hosplLal room unLll Lhls CourL ln Lhe case of OtJoez v
Ceo lobloo vet et ol (C8 no 33343 CcLober 28 1980) lssued an order dlrecLlng
LhaL Lhe peLlLloners rlghL Lo be vlslLed by counsel be respecLed
Cn november 2 1980 Lhe peLlLloner was Lransferred agalnsL hls ob[ecLlons from
hls hosplLal arresL Lo an lsolaLlon room wlLhouL wlndows ln an army prlson camp aL
lorL 8onlfaclo MakaLl 1he peLlLloner sLaLes LhaL he was noL lnformed why he was
Lransferred and deLalned nor was he ever lnvesLlgaLed or quesLloned by any
mlllLary or clvll auLhorlLy
SubsequenLly on november 27 1980 Lhe peLlLloner was released for humanlLarlan
reasons from mlllLary cusLody and placed under house arresL ln Lhe cusLody of
Mrs Lydla Salonga sLlll wlLhouL Lhe beneflL of any lnvesLlgaLlon or charges
Cn uecember 10 1980 Lhe !udge AdvocaLe Ceneral senL Lhe peLlLloner a noLlce of
rellmlnary lnvesLlgaLlon ln leople v 8eolqoo Apoloo It et ol (whlch lncluded
peLlLloner as a coaccused) sLaLlng LhaL Lhe prellmlnary lnvesLlgaLlon of Lhe above
enLlLled case has been seL aL 230 oclock pm on uecember 12 1980 and LhaL
peLlLloner was glven Len (10) days from recelpL of Lhe charge sheeL and Lhe
supporLlng evldence wlLhln whlch Lo flle hls counLerevldence 1he peLlLloner sLaLes
LhaL up Lo Lhe Llme marLlal law was llfLed on !anuary 17 1981 and desplLe
assurance Lo Lhe conLrary he has noL recelved any coples of Lhe charges agalnsL
hlm nor any coples of Lhe socalled supporLlng evldence
Cn lebruary 9 1981 Lhe records of Lhe case were Lurned over by Lhe !udge
AdvocaLe Cenerals Cfflce Lo Lhe MlnlsLry of !usLlce
Cn lebruary 24 1981 Lhe respondenL ClLy llscal flled a complalnL accuslng
peLlLloner among oLhers of havlng vlolaLed 8epubllc AcL no 1700 as amended by
u 883 and 8aLas ambansa 8lg 31 ln relaLlon Lo ArLlcle 142 of Lhe 8evlsed enal
Code 1he lnquesL courL seL Lhe prellmlnary lnvesLlgaLlon for March 17 1981
Cn March 6 1981 Lhe peLlLloner was allowed Lo leave Lhe counLry Lo aLLend a
serles of church conferences and undergo comprehenslve medlcal examlnaLlons of
Lhe hearL sLomach llver eye and ear lncludlng a posslble removal of hls lefL eye Lo
save hls rlghL eye eLlLloner Salonga almosL dled as one of Lhe prlnclpal vlcLlms of
Lhe dasLardly bomblng of a Llberal arLy rally aL laza Mlranda on AugusL 20 1971
Slnce Lhen he has suffered serlous dlsablllLles 1he peLlLloner was rlddled wlLh
shrapnel and pleces sLlll remaln ln varlous parLs of hls body Pe has an Av flsLula
caused by a plece of shrapnel lodged one mllllmeLer from hls aorLa 1he peLlLloner
has llmlLed use of hls one remalnlng hand and arms ls compleLely bllnd and
physlcal ln Lhe lefL eye and has scar llke formaLlons ln Lhe remalnlng rlghL eye Pe ls
LoLally deaf ln Lhe rlghL ear and parLlally deaf ln Lhe lefL ear 1he peLlLloners
physlcal allmenLs led hlm Lo seek LreaLmenL abroad
Cn or around March 26 1981 Lhe counsel for peLlLloner was furnlshed a copy of an
amended complalnL slgned by Cen rospero Cllvas daLed March 12 1981
charglng Lhe peLlLloner along wlLh 39 oLher accused wlLh Lhe vlolaLlon of 8A 1700
as amended by u 883 8aLas ambansa 8lg 31 and u 1736 Pearlngs for
prellmlnary lnvesLlgaLlon were conducLed 1he prosecuLlon presenLed as lLs
wlLnesses Ambassador Armando lernandez Lhe Consul Ceneral of Lhe hlllpplnes
ln Los Angeles Callfornla Col 8alblno ulego SC/nlSA Chlef lnvesLlgaLlon and
Legal anel of Lhe resldenLlal SecurlLy Command and vlcLor Lovely hlmself
Cn CcLober 13 1981 Lhe counsel for peLlLloner flled a moLlon Lo dlsmlss Lhe
charges agalnsL peLlLloner for fallure of Lhe prosecuLlon Lo esLabllsh a prlma facle
case agalnsL hlm
Cn uecember 2 1981 Lhe respondenL [udge denled Lhe moLlon Cn !anuary 4
1982 he lssued a resoluLlon orderlng Lhe flllng of an lnformaLlon for vlolaLlon of Lhe
8evlsed AnLlSubverslon AcL as amended agalnsL forLy (40) people lncludlng
hereln peLlLloner
1he resoluLlons of Lhe respondenL [udge daLed uecember 2 1981 and !anuary 4
1982 are now Lhe sub[ecL of Lhe peLlLlon lL ls Lhe conLenLlon of Lhe peLlLloner LhaL
no prlma facle case has been esLabllshed by Lhe prosecuLlon Lo [usLlfy Lhe flllng of
an lnformaLlon agalnsL hlm Pe sLaLes LhaL Lo sancLlon hls furLher prosecuLlon
desplLe Lhe lack of evldence agalnsL hlm would be Lo admlL LhaL no rule of law exlsLs
ln Lhe hlllpplnes Loday
AfLer a palnsLaklng revlew of Lhe records Lhls CourL flnds Lhe evldence offered by
Lhe prosecuLlon uLLerly lnsufflclenL Lo esLabllsh a prlma facle case agalnsL Lhe
peLlLloner We granL Lhe peLlLlon
Powever before golng lnLo Lhe merlLs of Lhe case we shall pass upon a procedural
lssue ralsed by Lhe respondenLs
1he respondenLs call for adherence Lo Lhe conslsLenL rule LhaL Lhe denlal of a
moLlon Lo quash or Lo dlsmlss belng lnLerlocuLory ln characLer cannoL be
quesLloned by cerLlorarl LhaL slnce Lhe quesLlon of dlsmlssal wlll agaln be
consldered by Lhe courL when lL decldes Lhe case Lhe movanL has a plaln speedy
and adequaLe remedy ln Lhe ordlnary course of law and LhaL publlc lnLeresL
dlcLaLes LhaL crlmlnal prosecuLlons should noL be en[olned
40

1he general rule ls correcLly sLaLed Powever Lhe respondenLs fall Lo appreclaLe or
Lake lnLo accounL cerLaln excepLlons when a peLlLlon for cerLlorarl ls clearly
warranLed 1he case aL bar ls one such excepLlon
ln Lhe case of Mead v Angel (113 SC8A 236) Lhe same conLenLlons were advanced
by Lhe respondenLs Lo wlL
xxx xxx xxx
8espondenLs adverL Lo Lhe rule LhaL when a moLlon Lo quash flled by an accused
ln a crlmlnal case shall be denled Lhe remedy of Lhe accusedmovanL ls noL Lo flle a
peLlLlon for cerLlorarl or mandamus or prohlblLlon Lhe proper recourse belng Lo go
Lo Lrlal wlLhouL pre[udlce Lo hls rlghL Lo relLeraLe Lhe grounds lnvoked ln hls moLlon
Lo quash lf an adverse [udgmenL ls rendered agalnsL hlm ln Lhe appeal LhaL he may
Lake Lherefrom ln Lhe manner auLhorlzed by law (Mlll v leople et ol 101 hll
399 cbotol v lotlslmo et ol 13 SC8A 309)
Cn Lhls argumenL we ruled
1here ls no dlspuLlng Lhe valldlLy and wlsdom of Lhe rule lnvoked by Lhe
respondenLs Powever lL ls also recognlzed LhaL under cerLaln slLuaLlons recourse
Lo Lhe exLraordlnary legal remedles of cerLlorarl prohlblLlon or mandamus Lo
quesLlon Lhe denlal of a moLlon Lo quash ls consldered proper ln Lhe lnLeresL of
more enllghLened and subsLanLlal [usLlce as was so declared ln op v loteto
C8 no L12669 Aprll 30 1969
lnflnlLely more lmporLanL Lhan convenLlonal adherence Lo general rules of crlmlnal
procedure ls respecL for Lhe clLlzens rlghL Lo be free noL only from arblLrary arresL
and punlshmenL buL also from unwarranLed and vexaLlous prosecuLlon 1he
lnLegrlLy of a democraLlc socleLy ls corrupLed lf a person ls carelessly lncluded ln Lhe
Lrlal of around forLy persons when on Lhe very face of Lhe record no evldence
llnklng hlm Lo Lhe alleged consplracy exlsLs LxSenaLor !ovlLo Salonga hlmself a
vlcLlm of Lhe sLlll unresolved and helnous laza Mlranda bomblngs was arresLed aL
Lhe Manlla Medlcal CenLer whlle hosplLallzed for bronchlal asLhma When arresLed
he was noL lnformed of Lhe naLure of Lhe charges agalnsL hlm nelLher was counsel
allowed Lo Lalk Lo hlm unLll Lhls CourL lnLervened Lhrough Lhe lssuance of an order
dlrecLlng LhaL hls lawyers be permlLLed Lo vlslL hlm (Crdonez v Cen lablan ver eL
al C8 no 33343 CcLober 28 1980) Cnly afLer four monLhs of deLenLlon was Lhe
peLlLloner lnformed for Lhe flrsL Llme of Lhe naLure of Lhe charges agalnsL hlm AfLer
Lhe prellmlnary lnvesLlgaLlon Lhe peLlLloner moved Lo dlsmlss Lhe complalnL buL Lhe
same was denled SubsequenLly Lhe respondenL [udge lssued a resoluLlon orderlng
Lhe flllng of an lnformaLlon afLer flndlng LhaL a prlma facle case had been
esLabllshed agalnsL an of Lhe forLy persons accused
ln Lhe llghL of Lhe fallure Lo show prlma facle LhaL Lhe peLlLloner was probably gullLy
of consplrlng Lo commlL Lhe crlme Lhe lnlLlal dlsregard of peLlLloners consLlLuLlonal
rlghLs LogeLher wlLh Lhe masslve and damaglng publlclLy made agalnsL hlm [usLlfles
Lhe favorable conslderaLlon of Lhls peLlLlon by Lhls CourL WlLh former SenaLor
8enlgno Aqulno !r now deceased Lhere are aL leasL 38 oLher coaccused Lo be
Lrled wlLh Lhe peLlLloner 1he prosecuLlon musL presenL proof beyond reasonable
doubL agalnsL each and every one of Lhe 39 accused mosL of whom have varylng
parLlclpaLlons ln Lhe charge for subverslon 1he prosecuLlons sLar wlLness vlcLor
Lovely and Lhe only source of lnformaLlon wlLh regard Lo Lhe alleged llnk beLween
Lhe peLlLloner and Lhe serles of LerrorlsL bomblngs ls now ln Lhe unlLed SLaLes
1here ls reason Lo belleve Lhe peLlLloners clLaLlon of lnLernaLlonal news dlspaLches
* LhaL Lhe prosecuLlon may flnd lL dlfflculL lf noL lnfeaslble Lo brlng hlm back Lo Lhe
hlllpplnes Lo LesLlfy agalnsL Lhe peLlLloner lf Lovely refused Lo LesLlfy before an
Amerlcan federal grand [ury how could he posslbly be made Lo LesLlfy when Lhe
charges agalnsL Lhe respondenL come up ln Lhe course of Lhe Lrlal agalnsL Lhe 39
accused Conslderlng Lhe foregolng we flnd lL ln Lhe lnLeresL of [usLlce Lo resolve aL
Lhls sLage Lhe lssue of wheLher or noL Lhe respondenL [udge gravely abused hls
dlscreLlon ln lssulng Lhe quesLloned resoluLlons
1he respondenLs conLend LhaL Lhe prosecuLlon wlll lnLroduce addlLlonal evldence
durlng Lhe Lrlal and lf Lhe evldence by Lhen ls noL sufflclenL Lo prove Lhe
peLlLloners gullL he would anyway be acqulLLed ?es buL under Lhe clrcumsLances
of Lhls case aL whaL cosL noL only Lo Lhe peLlLloner buL Lo Lhe baslc fabrlc of our
crlmlnal [usLlce sysLem?
1he Lerm prlma facle evldence denoLes evldence whlch lf unexplalned or
unconLradlcLed ls sufflclenL Lo susLaln Lhe proposlLlon lL supporLs or Lo esLabllsh Lhe
facLs or Lo counLerbalance Lhe presumpLlon of lnnocence Lo warranL a convlcLlon
1he quesLlon ralsed before us now ls Were Lhe evldences agalnsL Lhe peLlLloner
unconLradlcLed and lf Lhey were unexplalned or unconLradlcLed would Lhey
sLandlng alone sufflclenLly overcome Lhe presumpLlon of lnnocence and warranL
hls convlcLlon?
We do noL Lhlnk so
1he records reveal LhaL ln flndlng a case agalnsL Lhe peLlLloner Lhe respondenL
[udge relled only on Lhe LesLlmonles of Col 8alblno ulego and vlcLor Lovely
Ambassador Armando lernandez when called upon Lo LesLlfy on subverslve
organlzaLlons ln Lhe unlLed SLaLes nowhere menLloned Lhe peLlLloner as an
organlzer offlcer or member of Lhe MovemenL for lree hlllpplnes (Ml) or any of
Lhe organlzaLlons menLloned ln Lhe complalnL Col ulego on Lhe oLher hand when
asked whaL evldence he was able Lo gaLher agalnsL Lhe peLlLloner depended only on
Lhe sLaLemenL of Lovely LhaL lL was Lhe resldence of exSenaLor Salonga where
Lhey meL LogeLher wlLh 8enaLo 1anada one of Lhe bralns of Lhe bomblng
consplracy and Lhe facL LhaL Sen Salonga has been meeLlng wlLh several
subverslve personnel based ln Lhe uSA was also revealed Lo me by vlcLor 8urns
Lovely 11 and on Lhe group plcLures Laken aL former Congressman 8aul uazas
blrLhday parLy ln concludlng LhaL a consplracy exlsLs Lo overLhrow by vlolenL means
Lhe governmenL of Lhe hlllpplnes ln Lhe unlLed SLaLes hls only bases were
documenLary as well as physlcal and sworn sLaLemenLs LhaL were referred Lo me
or Laken by me personally whlch of course negaLe personal knowledge on hls parL
41

When asked by Lhe courL how he would caLegorlze peLlLloner ln any of Lhe
subverslve organlzaLlons wheLher peLlLloner was an organlzer offlcer or a member
Lhe wlLness replled
A 1o caLegorlze former SenaLor Salonga lf he were an organlzer he ls an offlcer or
he ls a member your Ponor please we have Lo conslder Lhe surroundlng
clrcumsLances and on hls lnvolvemenL flrsL SenaLor Salonga wanLed always Lo
Lravel Lo Lhe unlLed SLaLes aL leasL once a year or more ofLen under Lhe preLexL of
Lo undergo some sorL of operaLlon and parLlclpaLe ln some sorL of semlnar (Lsn
Aprll 21 1981 pp 1413)
Such LesLlmony belng based on affldavlLs of oLher persons and purely hearsay can
hardly quallfy as prlma facle evldence of subverslon lL should noL have been glven
credence by Lhe courL ln Lhe flrsL place Pearsay evldence wheLher ob[ecLed Lo or
noL has no probaLlve value as Lhe afflanL could noL have been crossexamlned on
Lhe facLs sLaLed Lhereln (See eople v Lablnla 113 SC8A 223 eople v valero 112
SC8A 661) Moreover as vlcLor Lovely hlmself was personally examlned by Lhe
courL Lhere was no need for Lhe LesLlmony of Col ulego 1hus Lhe lnquesL [udge
should have conflned hls lnvesLlgaLlon Lo vlcLor 8urns Lovely Lhe sole wlLness
whose LesLlmony had apparenLly lmpllcaLed peLlLloner ln Lhe bomblngs whlch
evenLually led Lo Lhe flllng of Lhe lnformaLlon
Lovelys accounL of Lhe peLlLloners lnvolvemenL wlLh Lhe formers bomblng mlsslon
ls found ln hls sworn sLaLemenL made before Col ulego and LL Col Madella and
Laken on CcLober 17 1980 aL Lhe Al Medlcal CenLer Lovely was noL presenLed as
a prosecuLlon or sLaLe wlLness buL only as a Jefeose wltoess for hls Lwo younger
broLhers 8omeo and 8alLazar who were boLh lncluded ln Lhe complalnL buL who
were laLer dropped from Lhe lnformaLlon vlcLor Lovely was examlned by hls
counsel and crossexamlned by Lhe flscal ln Lhe process he ldenLlfled Lhe
sLaLemenL whlch he made before Col ulego and LL Col Madella AfLer Lovelys
LesLlmony Lhe prosecuLlon made a manlfesLaLlon before Lhe courL LhaL lL was
adopLlng Lovely as a prosecuLlon wlLness
Accordlng Lo Lovelys sLaLemenL Lhe followlng evenLs Look place
36 C uld slnakls Lell you where Lo sLay?
A ?es aL flrsL he Lold me Lo checkln aL Manlla PoLel or Lhe laza PoLel where
somebody would come Lo conLacL me and glve Lhe maLerlals needed ln Lhe
execuLlon of my mlsslon l LhoughL Lhls was noL safe so l dlsagreed wlLh hlm Mr
slnakls changed Lhe plan and lnsLead Lold me Lo vlslL Lhe resldence of LxSen
!ovlLo Salonga as ofLen as l can and someone wlll meeL me Lhere Lo glve Lhe
maLerlals l needed Lo accompllsh my mlsslon
37 C uld you comply as lnsLrucLed?
A ?es l arrlved ln Manlla on AugusL 20 1980 and sLayed aL Lhe resldence of Mr
!ohnny Chua husband of my buslness parLner Lhen l wenL Lo Lhe PosplLal where l
vlslLed my moLher and checkedln aL 8oom 303 of Lhe ?MCA aL Concepclon SLreeL
Manlla
38 C uld you vlslL Lhe resldence of former SenaLor !ovlLo Salonga as dlrecLed by
slnakls?
A l vlslLed Sen Salongas place Lhree (3) Llmes Lhe flrsL vlslL was AugusL 20 or 21
and Lhe lasL was 400 M of AugusL 31 1980 ln addlLlon Lo Lhese vlslLs l 1ALkLu
Lo hlm on Lhe phone abouL Lhree or four Llmes Cn my flrsL vlslL l Lold hlm l am
expecLlng an aLLache case from somebody whlch wlll be dellvered Lo your house
for whlch Sen Salonga replled Wala namang nagpunLa dlLo aL wala namang
aLLache case para sa lyo Powever lf your aLLache case arrlves lll [usL call you l
gave hlm my number Cn my second vlslL Salonga sald lll be very busy so [usL
come back on Lhe 31sL of AugusL aL 4 M Cn LhaL daLe l was wlLh frlends aL
8aLulao 8esorL and had Lo hurry back Lo be aL Salongas place for Lhe appolnLmenL l
arrlved aL Salongas place aL exacLly 4 M
39 C WhaL happened Lhen?
A l was ushered Lo Lhe sala by Mrs Salonga and afLer flve mlnuLes Sen Salonga
[olned me ln Lhe sala Sen Salonga lnformed me LhaL somebody wlll be comlng Lo
glve me Lhe aLLache case buL dld noL Lell me Lhe name
40 C Are Lhere any sub[ecL maLLers you dlscuss whlle walLlng for LhaL somebody Lo
dellver your maLerlals?
A ?es Salonga asked lf Sen Aqulno and l have meL l explalned Lo hlm Lhe efforLs of
8aul uaza ln seLLlng up LhaL meeLlng buL l have prevlous buslness commlLmenLs aL
norfolk vlrglnla l Lold hlm however LhaL Lhrough Lhe efforLs of 8aul uaza l was
able Lo Lalk wlLh nlnoy Aqulno ln Lhe alrporL Lelephone booLh ln San lranclsco Pe
also asked abouL 8aul uaza SLeve slnakls and Lhe laLesL opposlLlon group acLlvlLles
buL lL seems he ls well lnformed
41 C Pow long dld you walL unLll LhaL somebody arrlved?
A AbouL LhlrLy (30) mlnuLes
41 C WhaL happened when Lhe man arrlved?
A 1hls man arrlved and l was greaLly surprlsed Lo see ALLy 8enaLo 1anada !ovy
Salonga was Lhe one who meL hlm and as l observed parang nasa sarlllng bahay sl
1anada nung dumaLlng 1hey Lalked for flve (3) mlnuLes ln very low Lones so l dld
noL hear whaL Lhey Lalked abouL AfLer Lhelr whlsperlng conversaLlons Sen Salonga
lefL and aL Lhls Llme ALLy nlLs 1anada Lold me nasa akln ang kallangan mo nasa
koLse
43 C Were Lhe maLerlals glven Lo you?
A When Sen Salonga came back we asked Lo be permlLLed Lo leave and l rode ln
ALLy nlLs 1anadas old onLlac car colored dlrLy brown and proceeded Lo
8roadway CenLrum where before l allghLed ALLy 1anada handed me a uma bag
conLalnlng all Lhe maLerlals l needed
xxx xxx xxx
43 C WhaL were Lhe conLenLs of Lhe uma bag?
A 1en (10) pleces of WesLclox pockeL waLch wlLh screw and wlrlngs Len (10) pleces
elecLrlcal blasLlng caps 4 lengLh Len (10) pleces nonelecLrlcal blasLlng caps 1
42

lengLh nlne (9) pleces volLs dry cell baLLery Lwo (2) lmprovlsed elecLrlcal LesLers
Len (10) plasLlc packs of hlgh exploslve abouL 1 pound welghL each
Powever ln hls lnLervlew wlLh Mr 8onnle naLhanlelz whlch was alred on Channel 4
on november 8 1980 and whlch was also offered as evldence by Lhe accused
Lovely gave a dlfferenL sLory whlch negaLes Lhe above LesLlmony lnsofar as Lhe
peLlLloners parLlclpaLlon was concerned
xxx xxx xxx
C Who were Lhe people LhaL you conLacLed ln Manlla and for whaL purpose?
A 8efore l lefL for Lhe hlllpplnes Mr slnakls Lold me Lo check ln aL Lhe Manlla
PoLel or Lhe laza PoLel and somebody would [usL dellver Lhe maLerlals l would
need l dlsapproved of Lhls and l Lold hlm l would prefer a place LhaL ls famlllar Lo
me or who ls close Lo me Mr slnakls suggesLed Lhe resldence of Sen Salonga
And so l arrlved ln Manlla on AugusL 20 1980 1 made a call Lo Sen Salonga buL he
was ouL 1he nexL day l made a call agaln l was able Lo conLacL hlm l made an
appolnLmenL Lr see hlm l wenL Lo Sen Salongas house Lhe followlng day l asked
Sen Salonga lf someone had glven hlm an aLLache case for me Pe sald nobody
AfLerwards l made Lhree calls Lo Sen Salonga Sen Salonga Lold me call me agaln
on Lhe 31sL of AugusL l JlJ oot coll blm l jost weot to bls boose oo tbe J1st of
Aoqost ot 4 lM A few mlootes oftet my ottlvol Atty keooto 1ooJo ottlveJ wbeo
be boJ o cbooce to be oeot me be (Atty 1oooJo) wblspeteJ to me tbot be boJ tbe
ottocbe cose ooJ tbe motetlols l oeeJeJ lo bls cot 1bese motetlols wete qlveo to me
by Atty 1oooJo wbeo l ollqbteJ ot tbe 8tooJwoy ceottom (Lmphasls supplled)
uurlng Lhe crossexamlnaLlon counsel for peLlLloner asked Lovely abouL Lhe so
called desLablllzaLlon plan whlch Lhe laLLer menLloned ln hls sworn sLaLemenL
C ?ou menLloned ln your sLaLemenL Laken on CcLober 17 1980 marked LxhlblL C
abouL Lhe socalled desLablllzaLlon plan of Aqulno When you aLLended Lhe blrLhday
parLy of 8aul uaza whereln !ovlLo Salonga was also presenL was Lhls desLablllzaLlon
plan as alleged by you already formulaLed?
Wl1nLSS
A noL Lo my knowledge
CCu81 1C Wl1nLSS
C Mr WlLness who lnvlLed you Lo Lhe parLy?
A 8aul uaza your Ponor
C Were you Lold LhaL Mr Salonga would be presenL ln Lhe parLy
A l am really noL qulLe sure your Ponor
C AlrlghL ?ou sald lnlLlally lL was soclal buL Lhen lL became pollLlcal Was Lhere any
pollLlcal acLlon Laken as a resulL of Lhe parLy?
A Cnly pollLlcal dlscusslon your Ponor (1Sn !uly 8 1981 pp 6984)
Counsel for peLlLloner also asked Lovely wheLher ln vlew of Lhe laLLers awareness
of Lhe physlcal condlLlon of peLlLloner he really lmpllcaLed peLlLloner ln any of Lhe
bomblngs LhaL occurred ln MeLro Manlla 1he flscal ob[ecLed wlLhouL sLaLlng any
ground ln susLalnlng Lhe ob[ecLlon Lhe CourL sald
SusLalned 1he use of Lhe word lmpllcaLe mlghL expand Lhe role of Mr Salonga
ln oLher words you are wldenlng Lhe avenue of Mr Salongas role beyond Lhe
parLlclpaLlon sLaLed ln Lhe LesLlmony of Lhls wlLness abouL Mr Salonga aL leasL as
far as Lhe evldence ls concerned l supposed ls only belng ln Lhe house of Mr
Salonga whlch was used as Lhe conLacL polnL Pe never menLlons Mr Salonga abouL
Lhe bomblngs now Lhese words had Lo be puL ln Lhe mouLh of Lhls wlLness 1haL
would be unfalr Lo Mr Salonga (1Sn !uly 8 1981 p 67)
8espondenL [udge furLher sald
CCu81
As Lhe CourL sald earller Lhe parLs or porLlons affecLlng Salonga only refers Lo Lhe
wlLness comlng Lo Manlla already Lhen Lhe maLLer of l have gone over Lhe
sLaLemenL and Lhere ls no menLlon of Salonga lnsofar as acLlvlLles ln Lhe unlLed
SLaLes ls concerned l donL know why lL concerns Lhls crossexamlnaLlon
A11? ?A
8ecause accordlng Lo hlm lL was ln pursuance of Lhe plan LhaL he came Lo Manlla
CCu81
Accordlng Lo hlm lL was Aqulno uaza and slnakls who asked hlm Lo come here
buL Salonga was lnLroduced only when he (Lovely) came here now Lhe Lendency of
Lhe quesLlon ls also Lo connecL Salonga Lo Lhe acLlvlLles ln Lhe unlLed SLaLes lL
seems Lo be Lhe LhrusL of Lhe quesLlons
CCu81
ln oLher words Lhe polnL of Lhe CourL as of Lhe Llme when you asked hlm quesLlon
Lhe focus on Salonga was only from Lhe Llme when he meL Salonga aL Creenhllls lL
was Lhe flrsL Llme LhaL Lhe name of Salonga came up 1here was no menLlon of
Salonga ln Lhe formulaLlon of Lhe desLablllzaLlon plan as afflrmed by hlm 8uL you
are brlnglng Lhls up alLhough you are only crossexamlnlng for Salonga as lf hls
(Lovelys) acLlvlLles ln Lhe unlLed SLaLes affecLed Salonga (1Sn !uly 8 1981 pp 73
74)
ApparenLly Lhe respondenL [udge wanLed Lo puL Lhlngs ln proper perspecLlve by
llmlLlng Lhe peLlLloners alleged parLlclpaLlon ln Lhe bomblng mlsslon only Lo Lhe
facL LhaL peLlLloners house was used as a conLacL polnL beLween Lovely and
1anada whlch was all LhaL Lovely really sLaLed ln hls LesLlmony
Powever ln Lhe quesLloned resoluLlon daLed uecember 2 1981 Lhe respondenL
[udge suddenly lncluded Lhe acLlvlLles of peLlLloner ln Lhe unlLed SLaLes as hls
basls for denylng Lhe moLlon Lo dlsmlss
Cn Lhe acLlvlLles of Salonga ln Lhe unlLed SLaLes Lhe wlLness Lovely ln one of hls
sLaLemenLs declared 1o Lhe besL of my recollecLlon he menLloned of some klnd of
vlolenL sLruggle ln Lhe hlllpplnes belng mosL llkely should reforms be noL lnsLlLuLed
by resldenL Marcos lmmedlaLely
lL ls Lherefore clear LhaL Lhe prosecuLlons evldence has esLabllshed facLs and
clrcumsLances sufflclenL for a flndlng LhaL excludes a MoLlon Lo ulsmlss by
respondenL Salonga 1he MovemenL for lree hlllpplnes ls undoubLedly a force
43

born on forelgn soll lL appears Lo rely on Lhe resources of forelgn enLlLles and ls
belng (slc) on galnlng ascendancy ln Lhe hlllpplnes wlLh Lhe use of force and for
LhaL purpose lL has llnked lLself wlLh even communlsL organlzaLlons Lo achleve lLs
end lL appears Lo rely on allens for lLs supporLers and flnanclers
1he [ump from Lhe conLacL polnL Lheory Lo Lhe concluslon of lnvolvemenL ln
subverslve acLlvlLles ln Lhe unlLed SLaLes ls noL only lnexpllcable buL wlLhouL
foundaLlon
1he respondenLs admlL LhaL no evldence was presenLed dlrecLly llnklng peLlLloner
Salonga Lo acLual acLs of vlolence or Lerrorlsm 1here ls no proof of hls dlrecL
parLlclpaLlon ln any overL acLs of subverslon Powever he ls Lagged as a leader of
subverslve organlzaLlons for Lwo reasons
(1) 8ecause hls house was used as a conLacLpolnL and
(2) 8ecause he menLloned some klnd of vlolenL sLruggle ln Lhe hlllpplnes belng
mosL llkely should reforms be noL lnsLlLuLed by resldenL Marcos lmmedlaLely
1he conLacL polnL Lheory or whaL Lhe peLlLloner calls Lhe gullL by vlslL or gullL by
assoclaLlon Lheory ls Loo Lenuous a basls Lo conclude LhaL SenaLor Salonga was a
leader or masLermlnd of Lhe bomblng lncldenLs 1o lndlcL a person slmply because
some ploLLers masqueradlng as vlslLors have somehow meL ln hls house or offlce
would be Lo esLabllsh a dangerous precedenL 1he rlghL of clLlzens Lo be secure
agalnsL abuse of governmenLal processes ln crlmlnal prosecuLlons would be
serlously undermlned
1he LesLlmony of vlcLor Lovely agalnsL peLlLloner Salonga ls full of lnconslsLencles
SenaLor Salonga and ALLy 8enaLo 1anada could noL have whlspered Lo one anoLher
because Lhe peLlLloner ls almosL LoLally deaf Lovely could noL have meL SenaLor
Salonga aL a Manglapus parLy ln WashlngLon uC ln 1977 because Lhe peLlLloner
lefL for Lhe unlLed SLaLes only on Novembet 1978 SenaLor Salonga denles havlng
known Mr Lovely ln Lhe unlLed SLaLes or ln Lhe hlllpplnes Pe sLaLes LhaL he has
hundred of vlslLors from week Lo week ln hls resldence buL cannoL recall any vlcLor
Lovely
1he presence of Lovely ln a group plcLure Laken aL Mr 8aul uazas blrLhday parLy ln
Los Angeles where SenaLor Salonga was a guesL ls noL proof of consplracy As sLaLed
by Lhe peLlLloner ln hls many years ln Lhe LurbulenL world of pollLlcs he has posed
wlLh all klnds of people ln varlous groups and varlous places and could noL posslbly
vouch for Lhelr conducL CommenLlng on Lhe maLLer newspaper columnlsL 1eodoro
valencla sLaLed LhaL llllplnos love Lo pose wlLh lmporLanL vlslLors and Lhe plcLure
proves noLhlng
lL ls llkewlse probable LhaL a naLlonal flgure and former pollLlclan of SenaLor
Salongas sLaLure can expecL guesLs and vlslLors of all klnds Lo be vlslLlng hls home
or offlce lf a rebel or subverslve happens Lo pose wlLh Lhe peLlLloner for a group
plcLure aL a blrLhday parLy abroad or even vlslL hlm wlLh oLhers ln hls home Lhe
peLlLloner does noL Lhereby become a rebel or subverslve much less a leader of a
subverslve group More credlble and sLronger evldence ls necessary for an
lndlcLmenL noneLheless even lf we dlscounL Lhe flaws ln Lovelys LesLlmony and
dlsmlss Lhe refuLaLlons and argumenLs of Lhe peLlLloner Lhe prosecuLlon evldence ls
sLlll lnadequaLe Lo esLabllsh a prlma facle flndlng
1he prosecuLlon has noL come up wlLh even a slngle loLa of evldence whlch could
poslLlvely llnk Lhe peLlLloner Lo any proscrlbed acLlvlLles of Lhe MovemenL for lree
hlllpplnes or any subverslve organlzaLlon menLloned ln Lhe complalnL Lovely had
already LesLlfled LhaL durlng Lhe parLy of former Congressman 8aul uaza whlch was
alleged Lo have been aLLended by a number of members of Lhe Ml no pollLlcal
acLlon was Laken buL only pollLlcal dlscusslon lurLhermore Lhe alleged oplnlon of
Lhe peLlLloner abouL Lhe llkellhood of a vlolenL sLruggle here ln Lhe hlllpplnes lf
reforms are noL lnsLlLuLed assumlng LhaL he really sLaLed Lhe same ls noLhlng buL a
leglLlmaLe exerclse of freedom of LhoughL and expresslon no man deserves
punlshmenL for hls LhoughLs coqltotlools poeoom memo metetot And as Lhe laLe
!usLlce Cllver W Polmes sLaLed ln Lhe case of u5 v 5cbwlmmet 279 uS 644
lf Lhere ls any prlnclple of Lhe ConsLlLuLlon LhaL more lmperaLlvely calls for
aLLachmenL Lhan any oLher lL ls Lhe prlnclple of free LhoughL noL free LhoughL for
Lhose who agree wlLh us buL freedom for Lhe LhoughL LhaL we haLe
We have adopLed Lhe concepL LhaL freedom of expresslon ls a preferred rlghL and
Lherefore sLands on a hlgher level Lhan subsLanLlve economlc or oLher llberLles 1he
prlmacy Lhe hlgh esLaLe accorded freedom of expresslon ls a fundamenLal
posLulaLe of our consLlLuLlonal sysLem (Conzales v Commlsslon on LlecLlons 29
SC8A 833) As explalned by !usLlce Cardozo ln lolko v coooectlcot (302 uS 319)
Lhls musL be so because Lhe lessons of hlsLory boLh pollLlcal and legal lllusLraLe
LhaL freedom of LhoughL and speech ls Lhe lndlspensable condlLlon of nearly every
oLher form of freedom roLecLlon ls especlally mandaLed for pollLlcal dlscusslons
1hls CourL ls parLlcularly concerned when allegaLlons are made LhaL resLralnLs have
been lmposed upon mere crlLlclsms of governmenL and publlc offlclals ollLlcal
dlscusslon ls essenLlal Lo Lhe ascerLalnmenL of pollLlcal LruLh lL cannoL be Lhe basls
of crlmlnal lndlcLmenLs
1he unlLed SLaLes Supreme CourL ln Noto v uolteJ 5totes (367 uS 290)
dlsLlngulshed beLween Lhe obsttoct teocbloq of Lhe moral proprleLy or even moral
necesslLy for a resorL Lo force and vlolence and speech whlch would prepare a
group for vlolenL acLlon and sLeel lL Lo such acLlon ln wotts v uolteJ 5totes (394
uS 703) Lhe Amerlcan courL dlsLlngulshed beLween crlmlnal LhreaLs and
consLlLuLlonally proLecLed speech
lL sLaLed
We do noL belleve LhaL Lhe klnd of pollLlcal hyperbole lndulged ln by peLlLloner flLs
wlLhln LhaL sLaLuLory Lerm lor we musL lnLerpreL Lhe language Congress chose
agalnsL Lhe background of a profound naLlonal commlLmenL Lo Lhe prlnclple LhaL
debaLe on publlc lssues should be unlnhlblLed robusL and wlde open and LhaL lL
may well lnclude vehemenL causLlc and someLlmes unpleasanLly sharp aLLacks on
governmenL and publlc offlclals new ?ork 1lmes Co v Sulllvan (376 uS 234) 1he
44

language of Lhe pollLlcal arena llke Lhe language used ln labor dlspuLed ls ofLen
vlLuperaLlve abuslve and lnexacL We agree wlLh peLlLloner LhaL hls only offense
was a klnd of very crude offenslve meLhod of sLaLlng a pollLlcal opposlLlon Lo Lhe
resldenL
ln Lhe case before us Lhere ls no Leachlng of Lhe moral proprleLy of a resorL Lo
vlolence much less an advocacy of force or a consplracy Lo organlze Lhe use of
force agalnsL Lhe duly consLlLuLed auLhorlLles 1he alleged remark abouL Lhe
llkellhood of vlolenL sLruggle unless reforms are lnsLlLuLed ls noL a LhreaL agalnsL Lhe
governmenL nor ls lL even Lhe unlnhlblLed robusL causLlc or unpleasanLly sharp
aLLack whlch ls proLecLed by Lhe guaranLee of free speech arenLheLlcally Lhe
Amerlcan case of 8tooJeobotq v Oblo (393 uS 444) sLaLes LhaL Lhe consLlLuLlonal
guaranLees of free speech and free press do noL permlL a SLaLe Lo forbld or
proscrlbe advocacy of Lhe use of force or of law vlolaLlon excepL where such
advocacy ls dlrecLed Lo lnclLlng or produclng lmmlnenL lawless acLlon and ls llkely Lo
lnclLe or produce such acLlon 1he words whlch peLlLloner allegedly used accordlng
Lo Lhe besL recollecLlons of Mr Lovely are llghL years away from such Lype of
proscrlbed advocacy
ollLlcal dlscusslon even among Lhose opposed Lo Lhe presenL admlnlsLraLlon ls
wlLhln Lhe proLecLlve clause of freedom of speech and expresslon 1he same cannoL
be consLrued as subverslve acLlvlLles per se or as evldence of membershlp ln a
subverslve organlzaLlon under resldenLlal uecree no 883 SecLlon 3 paragraph 6
pollLlcal dlscusslon wlll only consLlLuLe prlma facle evldence of membershlp ln a
subverslve organlzaLlon lf such dlscusslon amounLs Lo
(6) Conferrlng wlLh offlcers or oLher members of such assoclaLlon or organlzaLlon lo
fottbetooce of ooy ploo ot eotetptlse tbeteof
As sLaLed earller Lhe prosecuLlon has falled Lo produce evldence LhaL would
esLabllsh any llnk beLween peLlLloner and any subverslve organlzaLlon Lven lf we
lend credence Lo Lovelys LesLlmony LhaL a pollLlcal dlscusslon Look place aL uazas
blrLhday parLy no proof whaLsoever was adduced LhaL such dlscusslon was ln
furLherance of any plan Lo overLhrow Lhe governmenL Lhrough lllegal means 1he
alleged oplnlon LhaL vlolenL sLruggle ls llkely unless reforms are lnsLlLuLed by no
means shows elLher advocacy of or lnclLemenL Lo vlolence or furLherance of Lhe
ob[ecLlves of a subverslve organlzaLlon
Lovely also declared LhaL he had noLhlng Lo do wlLh Lhe bomblng on AugusL 22
1980 whlch was Lhe only bomblng lncldenL LhaL occurred afLer hls arrlval ln Manlla
on AugusL 20 and before Lhe ?MCA exploslon on SepLember 6 1980 (See 1Sn pp
6363 !uly 8 1981) Pe furLher LesLlfled LhaL
Wl1nLSS
AcLually lL was noL my lnLenLlon Lo do some klnd of bomblng agalnsL Lhe
governmenL My bomblng mlsslon was dlrecLed agalnsL Lhe parLlcular famlly
(referrlng Lo Lhe Cabarrus famlly 1Sn p 11 !uly 9 1981 8ollo p 10
Such a sLaLemenL wholly negaLes any pollLlcally moLlvaLed or subverslve asslgnmenL
whlch Lovely was supposed Lo have been commlssloned Lo perform upon Lhe
orders of hls co accused and whlch was Lhe very reason why Lhey answer charged
ln Lhe flrsL place 1he respondenL [udge also asked Lovely abouL Lhe posslble
relaLlon beLween Cabarrus and peLlLloner
CCu81
C uld you suspecL any relaLlon beLween Cabarrus and !ovlLo Salonga why dld you
lmpllcaLe !ovlLo Salonga?
A no your Ponor l dld noL Lry Lo lmpllcaLe Salonga
lL should be noLed LhaL afLer Lovelys LesLlmony Lhe prosecuLlon manlfesLed Lo Lhe
courL LhaL lL was adopLlng hlm as a prosecuLlon wlLness 1herefore Lhe prosecuLlon
became lrreverslvely bound by Lovelys dlsclalmers on Lhe wlLness sLand LhaL lL was
noL hls lnLenLlon Lo do some klnd of bomblng agalnsL Lhe governmenL and LhaL he
dld noL Lry Lo lmpllcaLe Salonga especlally slnce Lovely ls Lhe sole wlLness
adopLed by Lhe prosecuLlon who could supposedly esLabllsh Lhe llnk beLween Lhe
peLlLloner and Lhe bomblng lncldenLs
1he respondenL courL should have Laken Lhese facLors lnLo conslderaLlon before
concludlng LhaL a prlma facle case exlsLs agalnsL Lhe peLlLloner Lvldence musL noL
only proceed from Lhe mouLh of a credlble wlLness buL lL musL be credlble ln lLself
such as Lhe common experlence and observaLlon of manklnd can approve as
probable under Lhe clrcumsLances (eople v uayad 36 SC8A 439) ln Lhe case aL
bar Lhe prosecuLlon cannoL even presenL a credlble verslon of Lhe peLlLloners role
ln Lhe bomblngs even lf lL lgnores Lhe subsequenL dlsclalmers of Lovely and wlLhouL
relylng on mere affldavlLs lncludlng Lhose made by Lovely durlng hls deLenLlon
1he resoluLlon daLed !anuary 4 1982 suffers from Lhe same defecL ln Lhls
resoluLlon Lovelys prevlous declaraLlons abouL Lhe bomblngs as parL of Lhe alleged
desLablllzaLlon plan and Lhe people behlnd Lhe same were accorded such credlblllLy
by Lhe respondenL [udge as lf Lhey had already been proved beyond reasonable
doubL
1he purpose of a prellmlnary lnvesLlgaLlon ls Lo secure Lhe lnnocenL agalnsL hasLy
mallclous and oppresslve prosecuLlon and Lo proLecL hlm from an open and publlc
accusaLlon of crlme from Lhe Lrouble expense and anxleLy of a publlc Lrlal and also
Lo proLecL Lhe sLaLe from useless and expenslve Lrlals (1roclo v ManLa 118 SC8A
241 clLlng Pashlm v 8oncan 71 hll 216) 1he rlghL Lo a prellmlnary lnvesLlgaLlon
ls a sLaLuLory granL and Lo wlLhhold lL would be Lo Lransgress consLlLuLlonal due
process (See eople v Candasa 23 SC8A 277) Powever ln order Lo saLlsfy Lhe due
process clause lL ls noL enough LhaL Lhe prellmlnary lnvesLlgaLlon ls conducLed ln Lhe
sense of maklng sure LhaL a Lransgressor shall noL escape wlLh lmpunlLy A
prellmlnary lnvesLlgaLlon serves noL only Lhe purposes of Lhe SLaLe More
lmporLanL lL ls a parL of Lhe guaranLees of freedom and falr play whlch are
blrLhrlghLs of all who llve ln our counLry lL ls Lherefore lmperaLlve upon Lhe flscal
or Lhe [udge as Lhe case may be Lo relleve Lhe accused from Lhe paln of golng
43

Lhrough a Lrlal once lL ls ascerLalned LhaL Lhe evldence ls lnsufflclenL Lo susLaln a
prlma facle case or LhaL no probable cause exlsLs Lo form a sufflclenL bellef as Lo Lhe
gullL of Lhe accused AlLhough Lhere ls no general formula or flxed rule for Lhe
deLermlnaLlon of probable cause slnce Lhe same most be declded ln Lhe llghL of Lhe
condlLlons obLalnlng ln glven slLuaLlons and lLs exlsLence depends Lo a large degree
upon Lhe flndlng or oplnlon of Lhe [udge conducLlng Lhe examlnaLlon such a flndlng
should noL dlsregard Lhe facLs before Lhe [udge nor run counLer Lo Lhe clear dlcLaLes
of reasons (See La Chemlse LacosLe SA v lernandez 129 SC8A 391) 1he [udge or
flscal Lherefore should noL go on wlLh Lhe prosecuLlon ln Lhe hope LhaL some
credlble evldence mlghL laLer Lurn up durlng Lrlal for Lhls would be a flagranL
vlolaLlon of a baslc rlghL whlch Lhe courLs are creaLed Lo uphold lL bears repeaLlng
LhaL Lhe [udlclary llves up Lo lLs mlsslon by vlLallzlng and noL denlgraLlng
consLlLuLlonal rlghLs So lL has been before lL should conLlnue Lo be so Mercado v
CourL of llrsL lnsLance of 8lzal 116 SC8A 93)
1he CourL had already dellberaLed on Lhls case a consensus on Lhe CourLs
[udgmenL had been arrlved aL and a drafL pooeoclo was clrculaLlng for
concurrences and separaLe oplnlons lf any when on !anuary 18 1983 respondenL
!udge 8odolfo CrLlz granLed Lhe moLlon of respondenL ClLy llscal Serglo AposLol Lo
drop Lhe subverslon case agalnsL Lhe peLlLloner ursuanL Lo lnsLrucLlons of Lhe
MlnlsLer of !usLlce Lhe prosecuLlon resLudled lLs evldence and declded Lo seek Lhe
excluslon of peLlLloner !ovlLo Salonga as one of Lhe accused ln Lhe lnformaLlon flled
under Lhe quesLloned resoluLlon
We were consLralned by Lhls acLlon of Lhe prosecuLlon and Lhe respondenL !udge Lo
wlLhdraw Lhe drafL ponencla from clrculaLlng for concurrences and slgnaLures and
Lo place lL once agaln ln Lhe CourLs crowded agenda for furLher dellberaLlons
lnsofar as Lhe absence of a prlma facle case Lo warranL Lhe flllng of subverslon
charges ls concerned Lhls declslon has been rendered mooL and academlc by Lhe
acLlon of Lhe prosecuLlon
8espondenL llscal Serglo AposLol correcLly polnLs ouL however LhaL he ls noL
precluded from flllng new charges for Lhe same acLs because Lhe peLlLloner has noL
been arralgned and double [eopardy does noL apply ln LhaL sense Lhe case ls noL
compleLely academlc
8ecenL developmenLs ln Lhls case serve Lo focus aLLenLlon on a noL Loo well known
aspecL of Lhe Supreme CourLs funcLlons
1he seLLlng aslde or declarlng vold ln proper cases of lnLruslons of SLaLe auLhorlLy
lnLo areas reserved by Lhe 8lll of 8lghLs for Lhe lndlvldual as consLlLuLlonally
proLecLed spheres where even Lhe awesome powers of CovernmenL may noL enLer
aL wlll ls noL Lhe LoLallLy of Lhe CourLs funcLlons
1he CourL also has Lhe duLy Lo formulaLe guldlng and conLrolllng consLlLuLlonal
prlnclples precepLs docLrlnes or rules lL has Lhe symbollc funcLlon of educaLlng
bench and bar on Lhe exLenL of proLecLlon glven by consLlLuLlonal guaranLees
ln Jelo comoto v ooqe (41 SC8A 1) Lhe peLlLloner who quesLloned a
119320000 ball bond as excesslve and Lherefore consLlLuLlonally vold escaped
from Lhe provlnclal [all whlle hls peLlLlon was pendlng 1he peLlLlon became mooL
because of hls escape buL we noneLheless rendered a declslon and sLaLed
1he facL LhaL Lhe case ls mooL and academlc should noL preclude Lhls 1rlbunal from
seLLlng forLh ln language clear and unmlsLakable Lhe obllgaLlon of fldellLy on Lhe
parL of lower courL [udges Lo Lhe unequlvocal command of Lhe ConsLlLuLlon LhaL
excesslve ball shall noL be requlred
ln Coozoles v Motcos (63 SC8A 624) wheLher or noL Lhe CulLural CenLer of Lhe
hlllpplnes could valldly be creaLed Lhrough an execuLlve order was mooLed by
resldenLlal uecree no 13 Lhe CenLers new charLer pursuanL Lo Lhe resldenLs
leglslaLlve powers under marLlal law SLan Lhls CourL dlscussed Lhe consLlLuLlonal
mandaLe on Lhe preservaLlon and developmenL of llllplno culLure for naLlonal
ldenLlLy (ArLlcle xv SecLlon 9 aragraph 2 of Lhe ConsLlLuLlon)
ln Lhe habeas corpus case of Apoloo It v otlle 39 SC8A 183) durlng Lhe
pendency of Lhe case 26 peLlLloners were released from cusLody and one wlLhdrew
hls peLlLlon 1he sole remalnlng peLlLloner was faclng charges of murder
subverslon and lllegal possesslon of flrearms 1he facL LhaL Lhe peLlLlon was mooL
and academlc dld noL prevenL Lhls CourL ln Lhe exerclse of lLs symbollc funcLlon
from promulgaLlng one of Lhe mosL volumlnous declslons ever prlnLed ln Lhe
8eporLs
ln Lhls case Lhe respondenLs agree wlLh our earller flndlng LhaL Lhe prosecuLlon
evldence mlserably falls Lo esLabllsh a prlma facle case agalnsL Lhe peLlLloner elLher
as a coconsplraLor of a desLablllzaLlon plan Lo overLhrow Lhe governmenL or as an
offlcer or leader of any subverslve organlzaLlon 1hey have Laken Lhe lnlLlaLlve of
dropplng Lhe charges agalnsL Lhe peLlLloner We relLeraLe Lhe rule however LhaL
Lhls CourL wlll noL valldaLe Lhe flllng of an lnformaLlon based on Lhe klnd of
evldence agalnsL Lhe peLlLloner found ln Lhe records
WPL8LlC8L Lhe peLlLlon ls ulSMlSSLu for havlng become mooL and academlc
SC C8uL8Lu
letoooJo cI 1eebookee Mokoslot coocepcloo It Meleoclonetteto llooo
scollo kelovo ooJ coevos II coocot
Apoloo ue lo loeote ooJ Alompoy II took oo pott

9LkL2 VS 9kCVINCIAL 8CAkD
Gk No L3S474 March 29 1982
LSCCLln I
1hls ls an orlglnal acLlon for cerLlorarl prohlblLlon and mandamus Lo annul
8esoluLlon no 228 of Lhe respondenL rovlnclal 8oard of nueva Lcl[a daLed AugusL
21 1972 Lo en[oln respondenLs from enforclng and lmplemenLlng sald 8esoluLlon
and Lo compel respondenLs Lo recognlze peLlLloner PonoraLo erez as acLlng
provlnclal flscal of nueva Lcl[a
46

1he facLual anLecedenLs whlch gave rlse Lo Lhls peLlLlon are noL dlspuLed When
former provlnclal flscal of nueva Lcl[a CelesLlno !uan was appolnLed [udge of Lhe
CourL of llrsL lnsLance of Cuezon Lhe SecreLary of !usLlce ln AdmlnlsLraLlve Crder
no 388 daLed SepLember 9 1971 deslgnaLed flrsL asslsLanL flscal Lmlllo Ceclllo of
nueva Lcl[a as acLlng provlnclal flscal
1

Cn May 10 1972 resldenL lerdlnand Marcos nomlnaLed peLlLloner PonoraLo
erez for appolnLmenL Lo Lhe poslLlon of rovlnclal llscal of nueva Lcl[a
2
lL
appears however LhaL Lhe nomlnaLlon whlch was submlLLed Lo Lhe Commlsslon on
AppolnLmenLs for conflrmaLlon was bypassed upon ad[ournmenL sloe Jle of
Congress on May 18 1972 Cn Lhe followlng day May 19 resldenL Marcos
deslgnaLed peLlLloner as acLlng provlnclal flscal
3

8eacLlng Lo Lhe sald deslgnaLlon respondenL rovlnclal 8oard enacLed 8esoluLlon
no 146 addressed Lo Lhe Commlsslon on AppolnLmenLs manlfesLlng lLs opposlLlon
Lo Lhe conflrmaLlon of peLlLloners appolnLmenL
4
8espondenL Covernor !oson also
flled a formal proLesL wlLh Lhe CommlLLee on !usLlce of Lhe Commlsslon on
AppolnLmenLs maklng known hls sLrong and emphaLlc opposlLlon Lo Lhe
conflrmaLlon
3
AfLer submlsslon of Lhe evldence ln supporL of Lhe opposlLlon Lhe
sald CommlLLee resolved noL Lo recommend Lhe conflrmaLlon of peLlLloners
appolnLmenL
6

Cn !une 7 1972 or durlng Lhe slxLh speclal sesslon of Congress peLlLloner was
nomlnaLed anew for appolnLmenL Lo Lhe offlce ln quesLlon
7
buL Lhe same was
llkewlse bypassed upon ad[ournmenL of Congress on !une 22 1972
8

Cn AugusL 11 1972 peLlLloner Look hls oaLh of offlce as acLlng provlnclal flscal
9

pursuanL Lo Lhe deslgnaLlon exLended by Lhe resldenL on May 19 1972 and on
AugusL 14 1972 he formally assumed formally assumed offlce
10

Cn AugusL 21 1972 respondenL rovlnclal 8oard passed 8esoluLlon no 228
orderlng respondenL rovlnclal 1reasurer Lo sLop paymenL of peLlLloners salarles as
acLlng provlnclal flscal
11

1he dlspuLe came Lo a head on AugusL 28 1972 when respondenL Lreasurer
dlsapproved peLlLloners requlslLlon for varlous offlce supplles Pls salary vouchers
were llkewlse dlsapproved by Lhe respondenL Covernor
Pence Lhe lnsLanL peLlLlon peLlLloner ralslng Lhe followlng legal quesLlons
1) WheLher or noL respondenL rovlnclal 8oard has Lhe power Lo pass and enacL a
resoluLlon noL recognlzlng hereln peLlLloner as acLlng provlnclal flscal desplLe Lhe
facL LhaL Lhe laLLer has assumed such offlce pursuanL Lo a deslgnaLlon lawfully
exLended Lo hlm by Lhe resldenL of Lhe hlllpplnes
2) WheLher or noL respondenL rovlnclal 8oard has Lhe power Lo defy and/or pass
[udgmenL on Lhe valldlLy of Lhe sald deslgnaLlon and assumpLlon
We deem lL unnecessary Lo pass upon Lhe lssues ralsed Lhls peLlLlon havlng become
mooL and academlc We Lake cognlzance of Lhe facL LhaL peLlLloner erez flled hls
cerLlflcaLe of candldacy for Lhe offlce of mayor of CabanaLuan ClLy ln Lhe local
elecLlons of !anuary 30 1980
12
1he mere flllng of a cerLlflcaLe of candldacy
consLlLuLes forfelLure of hls rlghL Lo Lhe conLroverLed offlce under SecLlon 29 of Lhe
LlecLlon Code of 1978 whlch provldes
SLC 29 CandldaLes holdlng appolnLlve offlce or poslLlon vety petsoo bolJloq o
pobllc oppolotlve offlce ot posltloo lncludlng acLlve members of Lhe Armed lorces
of Lhe hlllpplnes and offlcers and employees ln governmenLowned or conLrolled
corporaLlons sboll lpso focto ceose lo bls offlce ot posltloo oo tbe Jote be flles bls
cettlflcote of cooJlJocy Members of Lhe CablneL shall conLlnue ln Lhe offlces Lhey
presenLly hold noLwlLhsLandlng Lhe flllng of cerLlflcaLe of candldacy sub[ecL Lo Lhe
pleasure of Lhe resldenL of Lhe hlllpplnes (Lmphasls supplled)
A peLlLlon lnsLlLuLed Lo esLabllsh peLlLloners rlghL Lo an appolnLlve offlce ls
rendered mooL and academlc where hls rlghL Lo sald offlce has been forfelLed by hls
flllng of a cerLlflcaLe of candldacy Lo an elecLlve offlce
ACCC8ulnCL? Lhls peLlLlon ls hereby dlsmlssed no cosLs
SC C8uL8Lu
8otteJo (cboltmoo) Apoloo ue costto ooJ tlcto II coocot
coocepcloo It ooJ AboJ 5ootos II took oo pott

9ILCCNSA VS VILLAkLAL
Gk No L33S17 March 29 1974

lL8nAnuC Ip
eLlLloner hlllpplne ConsLlLuLlon AssoclaLlon [olned by oLher peLlLloners
1
all
delegaLes Lo Lhe 1971 ConsLlLuLlonal ConvenLlon sulng ln Lhelr capaclLy as such as
well as clLlzens and Laxpayers flled Lhls mandamus proceedlng on May 13 1971
praylng LhaL a wrlL be lssued orderlng respondenLs Cornello 1 vlllareal ln hls
capaclLy as Speaker of Lhe Lhen Pouse of 8epresenLaLlves Lhe Chlef AccounLanL
Lhereof as well as lLs AudlLor Lo lnspecL and examlne Lhe books records vouchers
and oLher supporLlng papers of Lhe Pouse of 8epresenLaLlves LhaL have relevance
Lo Lhe alleged Lransfer of 262 mllllon from varlous execuLlve offlces Lo Lhe Pouse
of 8epresenLaLlves as well as lLs books records vouchers and oLher supporLlng
papers deallng wlLh Lhe orlglnal ouLlay of Lhe 39 mllllon as approprlaLed for Lhe
19691970 flscal year Cn May 19 1971 Lhls CourL adopLed a resoluLlon of Lhe
followlng Lenor 1he respondenLs are hereby requlred Lo flle an answer Lo Lhe
peLlLlon for mandamus wlLhln 10 days from noLlce hereof and noL Lo move Lo
dlsmlss Lhe peLlLlon
2
1here was on !une 16 1971 an answer and moLlon Lo
dlsmlss on behalf of respondenLs seeklng Lhe dlsmlssal of Lhe sulL on Lhe ground of
lack of [urlsdlcLlon under Lhe Lheory of separaLlon of powers absence of a cause of
acLlon lack of legal personallLy Lo sue non[olnder of lndlspensable parLles as well as
Lhe mlschlevous consequences Lo whlch a sulL of such characLer would glve rlse
SubsequenLly Lhere was a reply by peLlLloners on !une 26 1971 and a re[olnder by
respondenLs on !une 28 1971 1here was even a surre[olnder by respondenLs on
47

!uly 6 of Lhe same year as well as a reply LhereLo on Lhe very same day 1hen came
Lhe hearlng on AugusL 4 1971
1here ls no need however Lo pass on Lhe merlLs of Lhe varlous legal lssues ralsed
as ln accordance wlLh Lhe rullng ln lblllpploe coostltotloo Assoclotloo loc v
Clmeoez
3
promulgaLed on lebruary 28 1974 a sulL of Lhls characLer has become
mooL and academlc wlLh Lhe effecLlvlLy of Lhe presenL ConsLlLuLlon and Lhe
consequenL abollLlon of Lhe Pouse of 8epresenLaLlves lL may noL be amlss Lo quoLe
Lhls excerpL from Lhe resoluLlon declarlng mooL and academlc Lhe above case
agalnsL AudlLor Ceneral Clmenez arenLheLlcally lL ls Lo be observed LhaL such
dlfflculLy need noL aLLend a peLlLlon of Lhls characLer lf flled now ln vlew of Lhe
speclflc provlslon ln Lhe presenL ConsLlLuLlon 1he records and books of accounLs of
Lhe naLlonal Assembly shall be open Lo Lhe publlc ln accordance wlLh law and such
books shall be audlLed by Lhe Commlsslon on AudlL whlch shall publlsh annually Lhe
lLemlzed expendlLures for each Member
4

WPL8LlC8L Lhe above peLlLlon ls declared mooL and academlc

DAVID VS AkkCC
Gk NC 171396

All powers need some resLralnL pracLlcal ad[usLmenLs raLher Lhan rlgld formula are
necessary Superlor sLrengLh Lhe use of force cannoL make wrongs lnLo rlghLs
ln Lhls regard Lhe courLs should be vlgllanL ln safeguardlng Lhe consLlLuLlonal rlghLs
of Lhe clLlzens speclflcally Lhelr llberLy
Chlef !usLlce ArLemlo v anganlban's phllosophy of llberLy ls Lhus mosL relevanL
Pe sald In cases |nvo|v|ng ||berty the sca|es of [ust|ce shou|d e|gh heav||y
aga|nst government and |n favor of the poor the oppressed the marg|na||zed the
d|spossessed and the eak" Laws and acLlons LhaL resLrlcL fundamenLal rlghLs
come Lo Lhe courLs wlLh a heavy presumpLlon agalnsL Lhelr consLlLuLlonal valldlLy"
1hese seven (7) consolldaLed peLlLlons for cettlototl and prohlblLlon allege LhaL
ln lssulng resldenLlal roclamaLlon no 1017 ( 1017) and Ceneral Crder no 3
(CC no 3) resldenL Clorla MacapagalArroyo commlLLed grave abuse of
dlscreLlon eLlLloners conLend LhaL respondenL offlclals of Lhe CovernmenL ln
Lhelr professed efforLs Lo defend and preserve democraLlc lnsLlLuLlons are acLually
Lrampllng upon Lhe very freedom guaranLeed and proLecLed by Lhe ConsLlLuLlon
Pence such lssuances are vold for belng unconsLlLuLlonal
Cnce agaln Lhe CourL ls faced wlLh an ageold buL perslsLenLly modern
problem now Joes tbe coostltotloo of o ftee people combloe tbe Jeqtee of /iberty
wltboot wblcb low becomes tytoooy wltb tbe Jeqtee of /ow wltboot wblcb llbetty
becomes llceose?
Cn lebruary 24 2006 as Lhe naLlon celebraLed Lhe 20
Lh
Annlversary of Lhe
Jso leople lowet l resldenL Arroyo lssued 1017 declarlng a sLaLe of naLlonal
emergency Lhus
NCJ 1LkLICkL l Clorla MacapagalArroyo resldenL of Lhe 8epubllc of Lhe
hlllpplnes and CommanderlnChlef of Lhe Armed lorces of Lhe hlllpplnes by
vlrLue of Lhe powers vesLed upon me by SecLlon 18 ArLlcle 7 of Lhe hlllpplne
ConsLlLuLlon whlch sLaLes LhaL 1he resldenL whenever lL becomes necessary
may call ouL (Lhe) armed forces Lo prevenL or suppress rebelllon " and ln my
capaclLy as Lhelr CommanderlnChlef do hereby command the Armed Iorces of
the 9h|||pp|nes to ma|nta|n |a and order throughout the 9h|||pp|nes prevent or
suppress a|| forms of |a|ess v|o|ence as e|| as any act of |nsurrect|on or
rebe|||on and to enforce obed|ence to a|| the |as and to a|| decrees orders and
regu|at|ons promu|gated by me persona||y or upon my d|rect|on and as prov|ded
|n Sect|on 17 Art|c|e 12 of the Const|tut|on do hereby dec|are a State of Nat|ona|
Lmergency
She clLed Lhe followlng facLs as bases
JLkLAS over Lhese pasL monLhs elemenLs ln Lhe po||t|ca| oppos|t|on have
consp|red |th author|tar|ans of the extreme Left represented by the NDIC99
N9A and the extreme k|ght represented by m|||tary adventur|sts the h|stor|ca|
enem|es of the democrat|c 9h|||pp|ne State who are now ln a LacLlcal alllance and
engaged ln a concerLed and sysLemaLlc consplracy over a broad fronL Lo brlng
down Lhe duly consLlLuLed CovernmenL elecLed ln May 2004
JLkLAS Lhese consplraLors have repeaLedly Lrled Lo brlng down Lhe resldenL
JLkLAS the c|a|ms of these e|ements have been reck|ess|y magn|f|ed by certa|n
segments of the nat|ona| med|a
JLkLAS Lhls serles of acLlons ls hurLlng Lhe hlllpplne SLaLe by obsLrucLlng
governance lncludlng h|nder|ng the groth of the economy and sabotag|ng the
peop|e's conf|dence |n government and the|r fa|th |n the future of th|s country
JLkLAS Lhese act|ons are adverse|y affect|ng the economy
JLkLAS these act|v|t|es g|ve tota||tar|an forces of both the extreme Left and
extreme k|ght the open|ng to |ntens|fy the|r avoed a|ms to br|ng don the
democrat|c 9h|||pp|ne State
JLkLAS ArLlcle 2 SecLlon 4 of Lhe our ConsLlLuLlon makes Lhe defense and
preservaLlon of Lhe democraLlc lnsLlLuLlons and Lhe SLaLe Lhe prlmary duLy of
CovernmenL
JLkLAS Lhe acLlvlLles abovedescrlbed Lhelr consequences ramlflcaLlons and
collaLeral effecLs consLlLuLe a c|ear and present danger Lo Lhe safeLy and Lhe
lnLegrlLy of Lhe hlllpplne SLaLe and of Lhe llllplno people
Cn Lhe same day Lhe resldenL lssued C C no 3 lmplemenLlng 1017 Lhus
JLkLAS over Lhese pasL monLhs elemenLs ln Lhe pollLlcal opposlLlon have
consplred wlLh auLhorlLarlans of Lhe exLreme LefL represenLed by Lhe nulCnA
and Lhe exLreme 8lghL represenLed by mlllLary advenLurlsLs Lhe hlsLorlcal enemles
of Lhe democraLlc hlllpplne SLaLe and who are now ln a LacLlcal alllance and
engaged ln a concerLed and sysLemaLlc consplracy over a broad fronL Lo brlng
down Lhe dulyconsLlLuLed CovernmenL elecLed ln May 2004
48

JLkLAS Lhese consplraLors have repeaLedly Lrled Lo brlng down our
republlcan governmenL
JLkLAS Lhe clalms of Lhese elemenLs have been recklessly magnlfled by cerLaln
segmenLs of Lhe naLlonal medla
JLkLAS Lhese serles of acLlons ls hurLlng Lhe hlllpplne SLaLe by obsLrucLlng
governance lncludlng hlnderlng Lhe growLh of Lhe economy and saboLaglng Lhe
people's confldence ln Lhe governmenL and Lhelr falLh ln Lhe fuLure of Lhls counLry
JLkLAS Lhese acLlons are adversely affecLlng Lhe economy
JLkLAS Lhese acLlvlLles glve LoLallLarlan forces of boLh Lhe exLreme LefL and
exLreme 8lghL Lhe openlng Lo lnLenslfy Lhelr avowed alms Lo brlng down Lhe
democraLlc hlllpplne SLaLe
JLkLAS ArLlcle 2 SecLlon 4 of our ConsLlLuLlon makes Lhe defense and
preservaLlon of Lhe democraLlc lnsLlLuLlons and Lhe SLaLe Lhe prlmary duLy of
CovernmenL
JLkLAS Lhe acLlvlLles abovedescrlbed Lhelr consequences ramlflcaLlons and
collaLeral effecLs consLlLuLe a clear and presenL danger Lo Lhe safeLy and Lhe
lnLegrlLy of Lhe hlllpplne SLaLe and of Lhe llllplno people
JLkLAS roclamaLlon 1017 daLe lebruary 24 2006 has been lssued declarlng a
SLaLe of naLlonal Lmergency
NCJ 1LkLICkL I GLCkIA MACA9AGALAkkCC by vlrLue of Lhe powers vesLed
ln me under Lhe ConsLlLuLlon as resldenL of Lhe 8epubllc of Lhe hlllpplnes and
CommanderlnChlef of Lhe 8epubllc of Lhe hlllpplnes and pursuanL Lo
roclamaLlon no 1017 daLed lebruary 24 2006 do hereby call upon Lhe Armed
lorces of Lhe hlllpplnes (Al) and Lhe hlllpplne naLlonal ollce (n) Lo prevenL
and suppress acLs of Lerrorlsm and lawless vlolence ln Lhe counLry
l hereby dlrecL Lhe Chlef of SLaff of Lhe Al and Lhe Chlef of Lhe n as well
as Lhe offlcers and men of Lhe Al and n to |mmed|ate|y carry out the
necessary and appropr|ate act|ons and measures to suppress and prevent acts of
terror|sm and |a|ess v|o|ence

Cn March 3 2006 exacLly one week afLer Lhe declaraLlon of a sLaLe of naLlonal
emergency and afLer all Lhese peLlLlons had been flled Lhe resldenL llfLed
1017 She lssued roclamaLlon no 1021 whlch reads
JLkLAS pursuanL Lo SecLlon 18 ArLlcle vll and SecLlon 17 ArLlcle xll of Lhe
ConsLlLuLlon roclamaLlon no 1017 daLed lebruary 24 2006 was lssued declarlng
a sLaLe of naLlonal emergency
JLkLAS by vlrLue of Ceneral Crder no3 and no6 daLed lebruary 24
2006 whlch were lssued on Lhe basls of roclamaLlon no 1017 Lhe Armed lorces
of Lhe hlllpplnes (Al) and Lhe hlllpplne naLlonal ollce (n) were dlrecLed Lo
malnLaln law and order LhroughouL Lhe hlllpplnes prevenL and suppress all form
of lawless vlolence as well as any acL of rebelllon and Lo underLake such acLlon as
may be necessary
JLkLAS Lhe Al and n have effecLlvely prevenLed suppressed and
quelled Lhe acLs lawless vlolence and rebelllon
NCJ 1LkLICkL I GLCkIA MACA9AGALAkkCC resldenL of Lhe
8epubllc of Lhe hlllpplnes by vlrLue of Lhe powers vesLed ln me by law hereby
dec|are that the state of nat|ona| emergency has ceased to ex|st
ln Lhelr presenLaLlon of Lhe facLual bases of 1017 and CC no 3 respondenLs
sLaLed LhaL Lhe proxlmaLe cause behlnd Lhe execuLlve lssuances was Lhe consplracy
among some mlllLary offlcers lefLlsL lnsurgenLs of Lhe new eople's Army (nA)
and some members of Lhe pollLlcal opposlLlon ln a ploL Lo unseaL or assasslnaLe
resldenL Arroyo 1hey consldered Lhe alm Lo ousL or assasslnaLe Lhe resldenL and
Lakeover Lhe relgns of governmenL as a clear and presenL danger
uurlng Lhe oral argumenLs held on March 7 2006 Lhe SollclLor Ceneral speclfled
Lhe facLs leadlng Lo Lhe lssuance of 1017 and CC no 3 S|gn|f|cant|y
there as no refutat|on from pet|t|oners' counse|s
1he SollclLor Ceneral argued LhaL Lhe lnLenL of Lhe ConsLlLuLlon ls Lo glve full
d|scret|onary poers Lo Lhe resldenL ln deLermlnlng Lhe necesslLy of calllng ouL
Lhe armed forces Pe emphaslzed LhaL none of Lhe peLlLloners has shown LhaL
1017 was wlLhouL facLual bases Whlle he explalned LhaL lL ls noL respondenLs' Lask
Lo sLaLe Lhe facLs behlnd Lhe quesLloned roclamaLlon however Lhey are
presenLlng Lhe same narraLed hereunder for Lhe elucldaLlon of Lhe lssues
Cn !anuary 17 2006 CapLaln naLhanlel 8abonza and llrsL LleuLenanLs
Sonny SarmlenLo Lawrence San !uan and aLrlclo 8umldang members of Lhe
Magdalo Croup lndlcLed ln Lhe Cakwood muLlny escaped Lhelr deLenLlon cell ln
lorL 8onlfaclo 1agulg ClLy ln a publlc sLaLemenL Lhey vowed Lo remaln deflanL
and Lo elude arresL aL all cosLs 1hey called upon Lhe people Lo sbow ooJ ptoclolm
oot Jlspleosote ot tbe sbom teqlme let os Jemoosttote oot Jlsqost oot ooly by
qoloq to tbe stteets lo ptotest bot olso by weotloq teJ booJs oo oot left otms"
Cn lebruary 17 2006 Lhe auLhorlLles goL hold of a documenL enLlLled Oploo
nockle l " whlch deLalled plans for bomblngs and aLLacks durlng Lhe hlllpplne
MlllLary Academy Alumnl Pomecomlng ln 8agulo ClLy 1he ploL was Lo assasslnaLe
selecLed LargeLs lncludlng some cablneL members and resldenL Arroyo herself
upon Lhe advlce of her securlLy resldenL Arroyo declded noL Lo aLLend Lhe Alumnl
Pomecomlng 1he nexL day aL Lhe helghL of Lhe celebraLlon a bomb was found
and deLonaLed aL Lhe MA parade ground
Cn lebruary 21 2006 LL San !uan was recapLured ln a communlsL safehouse ln
8aLangas provlnce lound ln hls possesslon were Lwo (2) flash dlsks conLalnlng
mlnuLes of Lhe meeLlngs beLween members of Lhe Magdalo Croup and Lhe naLlonal
eople's Army (nA) a Lape recorder audlo casseLLe carLrldges dlskeLLes and
coples of subverslve documenLs rlor Lo hls arresL LL San !uan announced
Lhrough uZ8P LhaL Lhe MoqJolos uuoy woolJ be oo lebtooty 24 2006 tbe 20
tb

Aoolvetsoty of Jso l
49

Cn lebruary 23 2006 n Chlef ArLuro Lomlbao lnLercepLed lnformaLlon LhaL
members of Lhe n Speclal AcLlon lorce were plannlng Lo defecL 1hus he
lmmedlaLely ordered SAl Commandlng Ceneral Marcellno lranco !r Lo #Jlsovow
any defecLlon 1he laLLer prompLly obeyed and lssued a publlc sLaLemenL All 5Al
oolts ote ooJet tbe effectlve coottol of tespooslble ooJ ttostwottby offlcets wltb
ptoveo loteqtlty ooJ oopoestloooble loyolty"
Cn Lhe same day aL Lhe house of former Congressman eplng Co[uangco resldenL
Cory Aqulno's broLher buslnessmen and mldlevel governmenL offlclals ploLLed
moves Lo brlng down Lhe Arroyo admlnlsLraLlon nelly Slndayen of 1lML Magazlne
reporLed LhaL asLor Saycon longLlme Arroyo crlLlc called a uS governmenL
offlclal abouL hls group's plans lf resldenL Arroyo ls ousLed Saycon also phoned a
man codenamed uelLa Saycon ldenLlfled hlm as 8/Cen uanllo Llm Commander of
Lhe Army's ellLe ScouL 8anger Llm sald lt wos oll systems qo fot tbe ploooeJ
movemeot oqolost Attoyo"
8/Cen uanllo Llm and 8rlgade Commander Col Arlel Cuerubln conflded Lo Cen
Ceneroso Senga Chlef of SLaff of Lhe Armed lorces of Lhe hlllpplnes (Al) LhaL a
huge number of soldlers would [oln Lhe rallles Lo provlde a crlLlcal mass and armed
componenL Lo Lhe AnLlArroyo proLesLs Lo be held on lebruary 24 2003 Accordlng
Lo Lhese Lwo (2) offlcers Lhere was no way Lhey could posslbly sLop Lhe soldlers
because Lhey Loo were breaklng Lhe chaln of command Lo [oln Lhe forces folsL Lo
unseaL Lhe resldenL Powever Cen Senga has remalned falLhful Lo hls
CommanderlnChlef and Lo Lhe chaln of command Pe lmmedlaLely Look cusLody
of 8/Cen Llm and dlrecLed Col Cuerubln Lo reLurn Lo Lhe hlllpplne Marlnes
PeadquarLers ln lorL 8onlfaclo
Larller Lhe CnA called for lnLenslflcaLlon of pollLlcal and revoluLlonary work
wlLhln Lhe mlllLary and Lhe pollce esLabllshmenLs ln order Lo forge alllances wlLh lLs
members and key offlclals nA spokesman Cregorlo ka 8oger" 8osal declared
1be commoolst lotty ooJ tevolotloooty movemeot ooJ tbe eotlte people look
fotwotJ to tbe posslblllty lo tbe comloq yeot of occompllsbloq lts lmmeJlote tosk of
btloqloq Jowo tbe Attoyo teqlme of teoJetloq lt to weokeo ooJ oooble to tole tbot
lt wlll oot toke mocb looqet to eoJ lt"
Cn Lhe oLher hand Cesar 8enerlo spokesman for Lhe naLlonal uemocraLlc lronL
(nul) aL norLh CenLral Mlndanao publlcly announced AotlAttoyo qtoops wltblo
tbe mllltoty ooJ pollce ote qtowloq toplJly bosteoeJ by tbe ecooomlc Jlfflcoltles
soffeteJ by tbe fomllles of All offlcets ooJ eollsteJ petsoooel wbo ooJettoke
coootetlosotqeocy opetotloos lo tbe flelJ" Pe clalmed LhaL wlLh Lhe forces of Lhe
naLlonal democraLlc movemenL Lhe anLlArroyo conservaLlve pollLlcal parLles
coallLlons plus Lhe groups LhaL have been relnforclng slnce !une 2003 lL ls probable
LhaL Lhe resldenL's ousLer ls nearlng lLs concludlng sLage ln Lhe flrsL half of 2006
8espondenLs furLher clalmed LhaL Lhe bomblng of LelecommunlcaLlon Lowers and
cell slLes ln 8ulacan and 8aLaan was also consldered as addlLlonal facLual basls for
Lhe lssuance of 1017 and CC no 3 So ls Lhe rald of an army ouLposL ln
8engueL resulLlng ln Lhe deaLh of Lhree (3) soldlers And also Lhe dlrecLlve of Lhe
CommunlsL arLy of Lhe hlllpplnes orderlng lLs fronL organlzaLlons Lo [oln 3000
MeLro Manlla radlcals and 23000 more from Lhe provlnces ln mass proLesLs
8y mldnlghL of lebruary 23 2006 Lhe resldenL convened her securlLy advlsers and
several cablneL members Lo assess Lhe gravlLy of Lhe fermenLlng peace and order
slLuaLlon She dlrecLed boLh Lhe Al and Lhe n Lo accounL for all Lhelr men and
ensure LhaL Lhe chaln of command remalns solld and undlvlded 1o proLecL Lhe
young sLudenLs from any posslble Lrouble LhaL mlghL break loose on Lhe sLreeLs Lhe
resldenL suspended classes ln all levels ln Lhe enLlre naLlonal CaplLal 8eglon
Ior the|r part pet|t|oners c|ted the events that fo||oed after the |ssuance of 99
1017 and GC No S
lmmedlaLely Lhe Cfflce of Lhe resldenL announced Lhe cancellaLlon of all programs
and acLlvlLles relaLed Lo Lhe 20
Lh
annlversary celebraLlon of Jso leople lowet l
and revoked Lhe permlLs Lo hold rallles lssued earller by Lhe local governmenLs
!usLlce SecreLary 8aul Conzales sLaLed LhaL pollLlcal rallles whlch Lo Lhe resldenL's
mlnd were organlzed for purposes of desLablllzaLlon are cancelled resldenLlal
Chlef of SLaff Mlchael uefensor announced LhaL wottootless ottests ooJ tokeovet
of focllltles locloJloq meJlo coo olteoJy be lmplemeoteJ"
undeLerred by Lhe announcemenLs LhaL rallles and publlc assemblles would noL be
allowed groups of proLesLers (members of kllosooq Moyo uoo kMu and naLlonal
lederaLlon of Labor unlonskllosooq Moyo uoo nAlLukMu) marched from
varlous parLs of MeLro Manlla wlLh Lhe lnLenLlon of converglng aL Lhe LuSA shrlne
1hose who were already near Lhe LuSA slLe were vlolenLly dlspersed by huge
clusLers of anLlrloL pollce 1he wellLralned pollcemen used Lruncheons blg flber
glass shlelds waLer cannons and Lear gas Lo sLop and break up Lhe marchlng
groups and scaLLer Lhe massed parLlclpanLs 1he same pollce acLlon was used
agalnsL Lhe proLesLers marchlng forward Lo Cubao Cuezon ClLy and Lo Lhe corner of
SanLolan SLreeL and LuSA 1haL same evenlng hundreds of rloL pollcemen broke
up an LuSA celebraLlon rally held along Ayala Avenue and aseo de 8oxas SLreeL ln
MakaLl ClLy
Accordlng Lo peLlLloner kllosooq Moyo uoo Lhe pollce clLed 1017 as Lhe ground
for Lhe dlspersal of Lhelr assemblles
uurlng Lhe dlspersal of Lhe rallylsLs along LuSA pollce arresLed (wlLhouL warranL)
peLlLloner 8andolf S uavld a professor aL Lhe unlverslLy of Lhe hlllpplnes and
newspaper columnlsL Also arresLed was hls companlon 8onald Llamas presldenL
of parLyllsL Akboyoo
AL around 1220 ln Lhe early mornlng of lebruary 23 2006 operaLlves of Lhe
Crlmlnal lnvesLlgaLlon and ueLecLlon Croup (CluC) of Lhe n on Lhe basls of
1017 and CC no 3 ralded Lhe uolly 1tlbooe offlces ln Manlla 1he raldlng Leam
conflscaLed news sLorles by reporLers documenLs plcLures and mockups of Lhe
SaLurday lssue ollcemen from Camp Crame ln Cuezon ClLy were sLaLloned lnslde
30

Lhe edlLorlal and buslness offlces of Lhe newspaper whlle pollcemen from Lhe
Manlla ollce ulsLrlcL were sLaLloned ouLslde Lhe bulldlng
A few mlnuLes afLer Lhe search and selzure aL Lhe uolly 1tlbooe offlces Lhe pollce
surrounded Lhe premlses of anoLher proopposlLlon paper Malaya and lLs slsLer
publlcaLlon Lhe Lablold AbanLe
1he rald accordlng Lo resldenLlal Chlef of SLaff Mlchael uefensor ls #meoot to
sbow o sttooq pteseoce to tell meJlo ootlets oot to cooolve ot Jo ooytbloq tbot
woolJ belp tbe tebels lo btloqloq Jowo tbls qovetomeot 1he n warned LhaL lL
would Lake over any medla organlzaLlon LhaL would noL follow #stooJotJs set by tbe
qovetomeot Jotloq tbe stote of ootloool emetqeocy ulrecLor Ceneral Lomlbao
sLaLed LhaL #lf tbey Jo oot follow tbe stooJotJs ooJ tbe stooJotJs ote lf tbey
woolJ coottlbote to lostoblllty lo tbe qovetomeot ot lf tbey Jo oot sobsctlbe to wbot
ls lo Ceoetol OtJet No 5 ooJ ltoc No 1017 we wlll tecommeoJ o tokeovet
naLlonal 1elecommunlcaLlons' Commlssloner 8onald Solls urged Lelevlslon and
radlo neLworks Lo #coopetote wlLh Lhe governmenL for Lhe duraLlon of Lhe sLaLe of
naLlonal emergency Pe asked for #bolooceJ tepottloq from broadcasLers when
coverlng Lhe evenLs surroundlng Lhe coup aLLempL folled by Lhe governmenL Pe
warned LhaL hls agency wlll noL heslLaLe Lo recommend Lhe closure of any
broadcasL ouLflL LhaL vlolaLes rules seL ouL for medla coverage when Lhe naLlonal
securlLy ls LhreaLened
Also on lebruary 23 2006 Lhe pollce arresLed Congressman Crlspln 8elLran
represenLlng Lhe Aookpowls arLy and Chalrman of kllosooq Moyo uoo (kMu)
whlle leavlng hls farmhouse ln 8ulacan 1he pollce showed a warranL for hls arresL
daLed 1983 8elLran's lawyer explalned LhaL Lhe warranL whlch sLemmed from a
case of lnclLlng Lo rebelllon flled durlng Lhe Marcos reglme had long been
quashed 8elLran however ls noL a parLy ln any of Lhese peLlLlons
When members of peLlLloner kMu wenL Lo Camp Crame Lo vlslL 8elLran Lhey were
Lold Lhey could noL be admlLLed because of 1017 and CC no 3 1wo members
were arresLed and deLalned whlle Lhe resL were dlspersed by Lhe pollce
8oyoo Mooo 8epresenLaLlve SaLur Ccampo eluded arresL when Lhe pollce wenL
afLer hlm durlng a publlc forum aL Lhe Sulo PoLel ln Cuezon ClLy 8uL hls Lwo
drlvers ldenLlfled as 8oel and ArL were Laken lnLo cusLody
8eLlred Ma[or Ceneral 8amon MonLano former head of Lhe hlllpplne
ConsLabulary was arresLed whlle wlLh hls wlfe and golfmaLes aL Lhe Crchard Colf
and CounLry Club ln uasmarlnas CavlLe
ALLempLs were made Lo arresL Aookpowls 8epresenLaLlve SaLur Ccampo
8epresenLaLlve 8afael Marlano 8oyoo Mooo 8epresenLaLlve 1eodoro Caslno and
Cabrlela 8epresenLaLlve Llza Maza 8oyoo Mooo 8epresenLaLlve !osel vlrador was
arresLed aL Lhe AL 1lckeL Cfflce ln uavao ClLy LaLer he was Lurned over Lo Lhe
cusLody of Lhe Pouse of 8epresenLaLlves where Lhe 8aLasan 3" declded Lo sLay
lndeflnlLely
LeL lL be sLressed aL Lhls polnL LhaL Lhe alleged vlolaLlons of Lhe rlghLs of
8epresenLaLlves 8elLran SaLur Ccampo et ol are noL belng ralsed ln Lhese
peLlLlons
Cn March 3 2006 resldenL Arroyo lssued 1021 declarlng LhaL Lhe sLaLe of
naLlonal emergency has ceased Lo exlsL
ln Lhe lnLerlm Lhese seven (7) peLlLlons challenglng Lhe consLlLuLlonallLy of 1017
and CC no 3 were flled wlLh Lhls CourL agalnsL Lhe abovenamed respondenLs
1hree (3) of Lhese peLlLlons lmpleaded resldenL Arroyo as respondenL
ln Gk No 171396 peLlLloners 8andolf S uavld et ol assalled 1017 on Lhe
grounds LhaL %1) lL encroaches on Lhe emergency powers of Congress %2) lL ls a
subLerfuge Lo avold Lhe consLlLuLlonal requlremenLs for Lhe lmposlLlon of marLlal
law and %3) lL vlolaLes Lhe consLlLuLlonal guaranLees of freedom of Lhe press of
speech and of assembly
ln Gk No 171409 peLlLloners nlnez CachoCllvares and 1tlbooe ubllshlng
Co lnc challenged Lhe CluC's acL of raldlng Lhe uolly 1tlbooe offlces as a clear case
of censorshlp" or prlor resLralnL" 1hey also clalmed LhaL Lhe Lerm emergency"
refers only Lo Lsunaml Lyphoon hurrlcane and slmllar occurrences hence Lhere ls
obsolotely oo emetqeocy" LhaL warranLs Lhe lssuance of 1017
ln Gk No 17148S peLlLloners hereln are 8epresenLaLlve lrancls !oseph C
Lscudero and LwenLy one (21) oLher members of Lhe Pouse of 8epresenLaLlves
lncludlng 8epresenLaLlves SaLur Ccampo 8afael Marlano 1eodoro Caslno Llza
Maza and !osel vlrador 1hey asserLed LhaL 1017 and CC no 3 consLlLuLe
osotpotloo of leqlslotlve powets" vlolotloo of fteeJom of exptessloo" and o
Jeclototloo of mottlol low" 1hey alleged LhaL resldenL Arroyo gtovely oboseJ
bet Jlsctetloo lo collloq oot tbe otmeJ fotces wltboot cleot ooJ vetlfloble foctool
bosls of tbe posslblllty of lowless vloleoce ooJ o sbowloq tbot tbete ls oecesslty to Jo
so"
ln Gk No 171483 peLlLloners kMu nAlLukMu and Lhelr members averred
LhaL 1017 and CC no 3 are unconsLlLuLlonal because %1) Lhey arrogaLe unLo
resldenL Arroyo Lhe power Lo enacL laws and decrees %2) Lhelr lssuance was
wlLhouL facLual basls and %3) Lhey vlolaLe freedom of expresslon and Lhe rlghL of
Lhe people Lo peaceably assemble Lo redress Lhelr grlevances
ln Gk No 171400 peLlLloner AlLernaLlve Law Croups lnc (ALCl) alleged LhaL
1017 and CC no 3 are unconsLlLuLlonal because Lhey vlolaLe %a) SecLlon 4 of
ArLlcle ll %b) SecLlons 1 2 and 4 of ArLlcle lll %c) SecLlon 23 of ArLlcle vl and %d)
SecLlon 17 of ArLlcle xll of Lhe ConsLlLuLlon
ln Gk No 171489 peLlLloners !ose Anselmo l Cadlz et ol alleged LhaL 1017 ls
an otblttoty ooJ oolowfol exetclse by tbe lteslJeot of bet Mottlol low powets"
And assumlng LhaL 1017 ls noL really a declaraLlon of MarLlal Law peLlLloners
argued LhaL lt omooots to oo exetclse by tbe lteslJeot of emetqeocy powets
wltboot cooqtessloool opptovol" ln addlLlon peLlLloners asserLed LhaL 1017
31

qoes beyooJ tbe ootote ooJ fooctloo of o ptoclomotloo os JefloeJ ooJet tbe
kevlseJ AJmlolsttotlve coJe
And lasLly ln Gk No 171424 peLlLloner Loren 8 Legarda malnLalned LhaL 1017
and CC no 3 are oocoostltotloool fot beloq vlolotlve of tbe fteeJom of
exptessloo locloJloq lts coqoote tlqbts socb os fteeJom of tbe ptess ooJ tbe tlqbt to
occess to lofotmotloo oo mottets of pobllc cooceto oll qootooteeJ ooJet Attlcle lll
5ectloo 4 of tbe 1987 coostltotloo" ln Lhls regard she sLaLed LhaL Lhese lssuances
prevenLed her from fully prosecuLlng her elecLlon proLesL pendlng before Lhe
resldenLlal LlecLoral 1rlbunal
ln respondenLs' ConsolldaLed CommenL Lhe SollclLor Ceneral counLered LhaL
fltst Lhe peLlLlons should be dlsmlssed for belng mooL secooJ peLlLloners ln
C8 nos 171400 (ALCl) 171424 (Legarda) 171483 (kMu et ol) 171483 (Lscudero
et ol) and 171489 (Cadlz et ol) have no legal sLandlng tbltJ lL ls noL necessary for
peLlLloners Lo lmplead resldenL Arroyo as respondenL foottb 1017 has
consLlLuLlonal and legal basls and flftb 1017 does noL vlolaLe Lhe people's rlghL
Lo free expresslon and redress of grlevances
Cn March 7 2006 Lhe CourL conducLed oral argumenLs and heard Lhe parLles
on Lhe above lnLerlocklng lssues whlch may be summarlzed as follows
A 9kCCLDUkAL
1) WheLher Lhe lssuance of 1021 renders Lhe peLlLlons mooL and academlc
2) WheLher peLlLloners ln 17148S (Lscudero et ol) Gk Nos 171400 (ALCl)
171483 (kMu et ol) 171489 (Cadlz et ol) and 171424 (Legarda) have legal
sLandlng
8 SU8S1AN1IVL
1) WheLher Lhe Supreme CourL can revlew Lhe facLual bases of 1017
2) WheLher 1017 and CC no 3 are unconsLlLuLlonal
a laclal Challenge
b ConsLlLuLlonal 8asls
c As Applled Challenge
A 9kCCLDUkAL
llrsL we musL resolve Lhe procedural roadblocks
l Moot ond 4codemic Princip/e
Cne of Lhe greaLesL conLrlbuLlons of Lhe Amerlcan sysLem Lo Lhls counLry ls Lhe
concepL of [udlclal revlew enunclaLed ln Motboty v MoJlsoo 1hls concepL resLs on
Lhe exLraordlnary slmple foundaLlon
1he ConsLlLuLlon ls Lhe supreme law lL was ordalned by Lhe people Lhe
ulLlmaLe source of all pollLlcal auLhorlLy lL confers llmlLed powers on Lhe naLlonal
governmenL x x x If the government consc|ous|y or unconsc|ous|y oversteps these
||m|tat|ons there must be some author|ty competent to ho|d |t |n contro| to
thart |ts unconst|tut|ona| attempt and thus to v|nd|cate and preserve |nv|o|ate
the ||| of the peop|e as expressed |n the Const|tut|on 1h|s poer the courts
exerc|se 1h|s |s the beg|nn|ng and the end of the theory of [ud|c|a| rev|e
8uL Lhe power of [udlclal revlew does noL repose upon Lhe courLs a self
sLarLlng capaclLy" CourLs may exerclse such power only when Lhe followlng
requlslLes are presenL fltst Lhere musL be an acLual case or conLroversy secooJ
peLlLloners have Lo ralse a quesLlon of consLlLuLlonallLy tbltJ Lhe consLlLuLlonal
quesLlon musL be ralsed aL Lhe earllesL opporLunlLy and foottb Lhe declslon of Lhe
consLlLuLlonal quesLlon musL be necessary Lo Lhe deLermlnaLlon of Lhe case lLself
8espondenLs malnLaln LhaL Lhe flrsL and second requlslLes are absenL hence we
shall llmlL our dlscusslon Lhereon
An acLual case or conLroversy lnvolves a confllcL of legal rlghL an opposlLe legal
clalms suscepLlble of [udlclal resoluLlon lL ls deflnlLe and concreLe Louchlng Lhe
legal relaLlons of parLles havlng adverse legal lnLeresL" a real and subsLanLlal
conLroversy admlLLlng of speclflc rellef 1he SollclLor Ceneral refuLes Lhe exlsLence
of such acLual case or conLroversy conLendlng LhaL Lhe presenL peLlLlons were
rendered mooL and academlc" by resldenL Arroyo's lssuance of 1021
Such conLenLlon lacks merlL
A mooL and academlc case ls one LhaL ceases Lo presenL a [usLlclable conLroversy by
vlrLue of supervenlng evenLs so LhaL a declaraLlon Lhereon would be of no pracLlcal
use or value Cenerally courLs decllne [urlsdlcLlon over such case or dlsmlss lL on
ground of mooLness
1he CourL holds LhaL resldenL Arroyo's lssuance of 1021 dld noL render Lhe
presenL peLlLlons mooL and academlc uurlng Lhe elghL (8) days LhaL 1017 was
operaLlve Lhe pollce offlcers accordlng Lo peLlLloners commlLLed lllegal acLs ln
lmplemenLlng lL Are 99 1017 and GC No S const|tut|ona| or va||d? Do they
[ust|fy these a||eged |||ega| acts? 1hese are Lhe vlLal lssues LhaL musL be resolved ln
Lhe presenL peLlLlons lL musL be sLressed LhaL an unconst|tut|ona| act |s not a
|a |t confers no r|ghts |t |mposes no dut|es |t affords no protect|on |t |s |n |ega|
contemp|at|on |noperat|ve"
1he mooL and academlc" prlnclple ls noL a maglcal formula LhaL can auLomaLlcally
dlssuade Lhe courLs ln resolvlng a case CourLs wlll declde cases oLherwlse mooL
and academlc lf fltst Lhere ls a grave vlolaLlon of Lhe ConsLlLuLlon secooJ Lhe
excepLlonal characLer of Lhe slLuaLlon and Lhe paramounL publlc lnLeresL ls lnvolved
tbltJ when consLlLuLlonal lssue ralsed requlres formulaLlon of conLrolllng prlnclples
Lo gulde Lhe bench Lhe bar and Lhe publlc and foottb Lhe case ls capable of
repeLlLlon yeL evadlng revlew
All Lhe foregolng excepLlons are presenL here and [usLlfy Lhls CourL's assumpLlon of
[urlsdlcLlon over Lhe lnsLanL peLlLlons eLlLloners alleged LhaL Lhe lssuance of
1017 and CC no 3 vlolaLes Lhe ConsLlLuLlon 1here ls no quesLlon LhaL Lhe lssues
belng ralsed affecL Lhe publlc's lnLeresL lnvolvlng as Lhey do Lhe people's baslc
rlghLs Lo freedom of expresslon of assembly and of Lhe press Moreover Lhe CourL
has Lhe duLy Lo formulaLe guldlng and conLrolllng consLlLuLlonal precepLs docLrlnes
or rules lL has Lhe symbollc funcLlon of educaLlng Lhe bench and Lhe bar and ln Lhe
presenL peLlLlons the m|||tary and the po||ce on Lhe exLenL of Lhe proLecLlon glven
32

by consLlLuLlonal guaranLees And lasLly respondenLs' conLesLed acLlons are
capable of repeLlLlon CerLalnly Lhe peLlLlons are sub[ecL Lo [udlclal revlew
ln Lhelr aLLempL Lo prove Lhe alleged mooLness of Lhls case respondenLs clLed Chlef
!usLlce ArLemlo v anganlban's SeparaLe Cplnlon ln 5oolokos v xecotlve
5ectetoty Powever Lhey falled Lo Lake lnLo accounL Lhe Chlef !usLlce's very
sLaLemenL LhaL an oLherwlse mooL" case may sLlll be declded ptovlJeJ tbe potty
tolsloq lt lo o ptopet cose bos beeo ooJ/ot cootlooes to be ptejoJlceJ ot JomoqeJ
os o Jltect tesolt of lts lssoooce" 1he presenL case falls rlghL wlLhln Lhls excepLlon
Lo Lhe mooLness rule polnLed ouL by Lhe Chlef !usLlce
ll Leqo/ 5tondinq
ln vlew of Lhe number of peLlLloners sulng ln varlous personallLles Lhe CourL deems
lL lmperaLlve Lo have a more Lhan passlng dlscusslon on legal sLandlng or locos
stooJl
locos stooJl ls deflned as a rlghL of appearance ln a courL of [usLlce on a glven
quesLlon" ln prlvaLe sulLs sLandlng ls governed by Lhe realparLlesln lnLeresL"
rule as conLalned ln SecLlon 2 8ule 3 of Lhe 1997 8ules of Clvll rocedure as
amended lL provldes LhaL every act|on must be prosecuted or defended |n the
name of the rea| party |n |nterest" Accordlngly Lhe realparLyln lnLeresL" ls the
party ho stands to be benef|ted or |n[ured by the [udgment |n the su|t or the
party ent|t|ed to the ava||s of the su|t" SucclncLly puL Lhe plalnLlff's sLandlng ls
based on hls own rlghL Lo Lhe rellef soughL
1he dlfflculLy of deLermlnlng locos stooJl arlses ln pub||c su|ts Pere Lhe
plalnLlff who asserLs a publlc rlghL" ln assalllng an allegedly lllegal offlclal acLlon
does so as a represenLaLlve of Lhe general publlc Pe may be a person who ls
affecLed no dlfferenLly from any oLher person Pe could be sulng as a sLranger" or
ln Lhe caLegory of a clLlzen" or 'Laxpayer" ln elLher case he has Lo adequaLely
show LhaL he ls enLlLled Lo seek [udlclal proLecLlon ln oLher words he has Lo make
ouL a sufflclenL lnLeresL ln Lhe vlndlcaLlon of Lhe publlc order and Lhe securlng of
rellef as a clLlzen" or Laxpayer
Case law ln mosL [urlsdlcLlons now allows boLh clLlzen" and Laxpayer"
sLandlng ln publlc acLlons 1he dlsLlncLlon was flrsL lald down ln 8eoocbomp v 5llk
where lL was held LhaL Lhe plalnLlff ln a Laxpayer's sulL ls ln a dlfferenL caLegory from
Lhe plalnLlff ln a clLlzen's sulL In the former the p|a|nt|ff |s affected by the
expend|ture of pub||c funds h||e |n the |atter he |s but the mere |nstrument of
the pub||c concern As held by Lhe new ?ork Supreme CourL ln leople ex tel cose
v colllos In matter of mere pub||c r|ght hoeverthe peop|e are the rea|
part|esIt |s at |east the r|ght |f not the duty of every c|t|zen to |nterfere and see
that a pub||c offence be proper|y pursued and pun|shed and that a pub||c
gr|evance be remed|ed" WlLh respecL Lo Laxpayer's sulLs 1ett v IotJoo held LhaL
the r|ght of a c|t|zen and a taxpayer to ma|nta|n an act|on |n courts to restra|n
the un|afu| use of pub||c funds to h|s |n[ury cannot be den|ed"
Powever Lo prevenL [usL abouL any person from seeklng [udlclal lnLerference
ln any offlclal pollcy or acL wlLh whlch he dlsagreed wlLh and Lhus hlnders Lhe
acLlvlLles of governmenLal agencles engaged ln publlc servlce Lhe unlLed SLaLe
Supreme CourL lald down Lhe more sLrlngenL d|rect |n[ury" test ln x lotte levltt
laLer reafflrmed ln 1llestoo v ullmoo 1he same CourL ruled LhaL for a prlvaLe
lndlvldual Lo lnvoke Lhe [udlclal power Lo deLermlne Lhe valldlLy of an execuLlve or
leglslaLlve acLlon he must sho that he has susta|ned a d|rect |n[ury as a resu|t of
that act|on and |t |s not suff|c|ent that he has a genera| |nterest common to a||
members of the pub||c
1hls CourL adopLed Lhe "d|rect |n[ury" test ln our [urlsdlcLlon ln leople v veto lL
held LhaL Lhe person who lmpugns Lhe valldlLy of a sLaLuLe musL have a persona|
and substant|a| |nterest |n the case such that he has susta|ned or ||| susta|n
d|rect |n[ury as a resu|t" 1he veto docLrlne was upheld ln a llLany of cases such as
costoJlo v lteslJeot of tbe 5eoote Moollo koce notse 1toloets Assoclotloo v ue lo
loeote loscool v 5ectetoty of lobllc wotks and Aotlcbloese leoqoe of tbe
lblllpploes v lellx
Powever belng a mere procedural LechnlcallLy Lhe requlremenL of locos stooJl
may be walved by Lhe CourL ln Lhe exerclse of lLs dlscreLlon 1hls was done ln Lhe
1949 Lmergency 9oers Cases Atooeto v uloqlosoo where Lhe transcendenta|
|mportance" of Lhe cases prompLed Lhe CourL Lo acL llberally Such llberallLy was
nelLher a rarlLy nor accldenLal ln Apoloo v comelec Lhls CourL resolved Lo pass
upon Lhe lssues ralsed due Lo Lhe farreach|ng |mp||cat|ons" of Lhe peLlLlon
noLwlLhsLandlng lLs caLegorlcal sLaLemenL LhaL peLlLloner Lhereln had no personallLy
Lo flle Lhe sulL lndeed Lhere ls a chaln of cases where Lhls llberal pollcy has been
observed allowlng ordlnary clLlzens members of Congress and clvlc organlzaLlons
Lo prosecuLe acLlons lnvolvlng Lhe consLlLuLlonallLy or valldlLy of laws regulaLlons
and rullngs
1hus Lhe CourL has adopLed a rule LhaL even where Lhe peLlLloners have falled
Lo show dlrecL ln[ury Lhey have been allowed Lo sue under Lhe prlnclple of
transcendenta| |mportance" erLlnenL are Lhe followlng cases
%1) cbovez v lobllc stotes Aotbotlty where Lhe CourL ruled LhaL the enforcement
of the const|tut|ona| r|ght to |nformat|on and the equ|tab|e d|ffus|on of natura|
resources are matters of transcendenta| |mportance h|ch c|othe the pet|t|oner
|th /ocus stondi
%) 8oqooq Alyoosooq Mokoboyoo v 2omoto whereln Lhe CourL held LhaL "g|ven
the transcendenta| |mportance of the |ssues |nvo|ved the Court may re|ax the
stand|ng requ|rements and a||o the su|t to prosper desp|te the |ack of d|rect
|n[ury to the part|es seek|ng [ud|c|a| rev|e" of Lhe vlslLlng lorces AgreemenL

%3) llm v xecotlve 5ectetoty whlle Lhe CourL noLed LhaL Lhe peLlLloners may noL
flle sulL ln Lhelr capaclLy as Laxpayers absenL a showlng LhaL 8allkaLan 0201"
lnvolves Lhe exerclse of Congress' Laxlng or spendlng powers lL relLeraLed
33

lLs rullng ln 8oqooq Alyoosooq Mokoboyoo v 2omoto Lhat |n cases of
transcendenta| |mportance the cases must be sett|ed prompt|y and def|n|te|y and
stand|ng requ|rements may be re|axed
8y way of summary Lhe followlng rules may be culled from Lhe cases declded by
Lhls CourL 1axpayers voLers concerned clLlzens and leglslaLors may be accorded
sLandlng Lo sue provlded LhaL Lhe followlng requlremenLs are meL
%1) Lhe cases lnvolve consLlLuLlonal lssues
%2) for taxpayers Lhere musL be a clalm of lllegal dlsbursemenL of publlc
funds or LhaL Lhe Lax measure ls unconsLlLuLlonal
%3) for voters Lhere musL be a showlng of obvlous lnLeresL ln Lhe valldlLy
of Lhe elecLlon law ln quesLlon
%4) for concerned c|t|zens Lhere musL be a showlng LhaL Lhe lssues ralsed
are of LranscendenLal lmporLance whlch musL be seLLled early and
%S) for |eg|s|ators Lhere musL be a clalm LhaL Lhe offlclal acLlon
complalned of lnfrlnges upon Lhelr prerogaLlves as leglslaLors
SlgnlflcanLly recenL declslons show a cerLaln Loughenlng ln Lhe CourL's aLLlLude
Loward legal sLandlng
ln kllosboyoo loc v Mototo Lhe CourL ruled LhaL Lhe sLaLus of kllosboyoo as a
people's organlzaLlon does noL glve lL Lhe requlslLe personallLy Lo quesLlon Lhe
valldlLy of Lhe onllne loLLery conLracL more so where lL does noL ralse any lssue of
consLlLuLlonallLy Moreover lL cannoL sue as a Laxpayer absenL any allegaLlon LhaL
publlc funds are belng mlsused nor can lL sue as a concerned clLlzen as lL does noL
allege any speclflc ln[ury lL has suffered
ln 1elecommoolcotloos ooJ 8tooJcost Attotoeys of tbe lblllpploes loc v
comelec Lhe CourL relLeraLed Lhe dlrecL ln[ury" LesL wlLh respecL Lo concerned
clLlzens' cases lnvolvlng consLlLuLlonal lssues lL held LhaL Lhere musL be a showlng
LhaL Lhe clLlzen personally suffered some acLual or LhreaLened ln[ury arlslng from
Lhe alleged lllegal offlclal acL"
ln locsoo v letez Lhe CourL ruled LhaL one of Lhe peLlLloners loboo oq
uemoktotlkooq llllploo (Lu) ls noL a real parLylnlnLeresL as lL had noL
demonsLraLed any ln[ury Lo lLself or Lo lLs leaders members or supporLers
ln 5oolokos v xecotlve 5ectetoty Lhe CourL ruled LhaL only Lhe peLlLloners who are
members of Congress have sLandlng Lo sue as Lhey clalm LhaL Lhe resldenL's
declaraLlon of a sLaLe of rebelllon |s a usurpat|on of the emergency poers of
Congress thus |mpa|r|ng the|r |eg|s|at|ve poers As Lo peLlLloners 5oolokos
lottlJo Mooqqoqowo ooJ 5oclol Iostlce 5oclety Lhe CourL declared Lhem Lo be
devold of sLandlng equaLlng Lhem wlLh Lhe Lu ln locsoo
now Lhe appllcaLlon of Lhe above prlnclples Lo Lhe presenL peLlLlons
1he locos stooJl of peLlLloners ln Gk No 171396 parLlcularly uavld and Llamas ls
beyond doubL 1he same holds Lrue wlLh peLlLloners ln Gk No 171409 Cacho
Cllvares and 1tlbooe ubllshlng Co lnc 1hey alleged dlrecL ln[ury" resulLlng from
lllegal arresL" and unlawful search" commlLLed by pollce operaLlves pursuanL Lo
1017 8lghLly so Lhe SollclLor Ceneral does noL quesLlon Lhelr legal sLandlng
ln Gk No 17148S Lhe opposlLlon Congressmen alleged Lhere was usurpaLlon
of leglslaLlve powers 1hey also ralsed Lhe lssue of wheLher or noL Lhe concurrence
of Congress ls necessary whenever Lhe alarmlng powers lncldenL Lo MarLlal Law are
used Moreover lL ls ln Lhe lnLeresL of [usLlce LhaL Lhose affecLed by 1017 can
be represenLed by Lhelr Congressmen ln brlnglng Lo Lhe aLLenLlon of Lhe CourL Lhe
alleged vlolaLlons of Lhelr baslc rlghLs
ln Gk No 171400 (ALCl) Lhls CourL applled Lhe llberallLy rule ln lbllcooso v
otlpoez kopotltoo Nq Mqo NoqlllloqkoJ so lomobolooo oq llllploos loc v 1oo
Assoclotloo of 5moll looJowoets lo tbe lblllpploes loc v 5ectetoty of Aqtotloo
kefotm 8osco v lblllpploe Amosemeot ooJ Comloq cotpototloo and 1ooJo v
1oveto LhaL when Lhe lssue concerns a publlc rlghL lL ls sufflclenL LhaL Lhe
peLlLloner ls a clLlzen and has an lnLeresL ln Lhe execuLlon of Lhe laws
ln Gk No 171483 kMu's asserLlon LhaL 1017 and CC no 3 vlolaLed lLs rlghL
Lo peaceful assembly may be deemed sufflclenL Lo glve lL legal sLandlng
Crgan|zat|ons may be granted stand|ng to assert the r|ghts of the|r members
We Lake [udlclal noLlce of Lhe announcemenL by Lhe Cfflce of Lhe resldenL bannlng
all rallles and cancellng all permlLs for publlc assemblles followlng Lhe lssuance of
1017 and CC no 3
ln Gk No 171489 peLlLloners coJlz et ol who are naLlonal offlcers of Lhe
lnLegraLed 8ar of Lhe hlllpplnes (l8) have no legal sLandlng havlng falled Lo allege
any dlrecL or poLenLlal ln[ury whlch Lhe l8 as an lnsLlLuLlon or lLs members may
suffer as a consequence of Lhe lssuance of no 1017 and CC no 3 ln
loteqtoteJ 8ot of tbe lblllpploes v 2omoto Lhe CourL held LhaL Lhe mere
lnvocaLlon by Lhe l8 of lLs duLy Lo preserve Lhe rule of law and noLhlng more whlle
undoubLedly Lrue ls noL sufflclenL Lo cloLhe lL wlLh sLandlng ln Lhls case 1hls ls Loo
general an lnLeresL whlch ls shared by oLher groups and Lhe whole clLlzenry
Powever ln vlew of Lhe LranscendenLal lmporLance of Lhe lssue Lhls CourL declares
LhaL peLlLloner have locos stooJl
ln Gk No 171424 Loren Legarda has no personallLy as a Laxpayer Lo flle Lhe
lnsLanL peLlLlon as Lhere are no allegaLlons of lllegal dlsbursemenL of publlc funds
1he facL LhaL she ls a former SenaLor ls of no consequence She can no longer sue
as a leglslaLor on Lhe allegaLlon LhaL her prerogaLlves as a lawmaker have been
lmpalred by 1017 and CC no 3 Per clalm LhaL she ls a medla personallLy wlll
noL llkewlse ald her because Lhere was no showlng LhaL Lhe enforcemenL of Lhese
lssuances prevenLed her from pursulng her occupaLlon Per submlsslon LhaL she
has pendlng elecLoral proLesL before Lhe resldenLlal LlecLoral 1rlbunal ls llkewlse of
no relevance She has noL sufflclenLly shown LhaL 1017 wlll affecL Lhe
proceedlngs or resulL of her case 8uL conslderlng once more Lhe LranscendenLal
lmporLance of Lhe lssue lnvolved Lhls CourL may relax Lhe sLandlng rules
34

lL musL always be borne ln mlnd LhaL Lhe quesLlon of locos stooJl ls buL corollary Lo
Lhe blgger quesLlon of proper exerclse of [udlclal power 1hls ls Lhe underlylng legal
LeneL of Lhe llberallLy docLrlne" on legal sLandlng lL cannoL be doubLed LhaL Lhe
valldlLy of no 1017 and CC no 3 ls a [udlclal quesLlon whlch ls of paramounL
lmporLance Lo Lhe llllplno people 1o paraphrase !usLlce Laurel Lhe whole of
hlllpplne socleLy now walLs wlLh baLed breaLh Lhe rullng of Lhls CourL on Lhls very
crlLlcal maLLer 1he peLlLlons Lhus call for Lhe appllcaLlon of Lhe transcendenta|
|mportance" docLrlne a relaxaLlon of Lhe sLandlng requlremenLs for Lhe peLlLloners
ln Lhe 1017 cases"
1hls CourL holds LhaL all Lhe peLlLloners hereln have locos stooJl
lncldenLally lL ls noL proper Lo lmplead resldenL Arroyo as respondenL SeLLled ls
Lhe docLrlne LhaL Lhe resldenL durlng hls Lenure of offlce or acLual lncumbency
may noL be sued ln ooy clvll or crlmlnal case and Lhere ls no need Lo provlde for lL
ln Lhe ConsLlLuLlon or law lL wlll degrade Lhe dlgnlLy of Lhe hlgh offlce of Lhe
resldenL Lhe Pead of SLaLe lf he can be dragged lnLo courL llLlgaLlons whlle servlng
as such lurLhermore lL ls lmporLanL LhaL he be freed from any form of
harassmenL hlndrance or dlsLracLlon Lo enable hlm Lo fully aLLend Lo Lhe
performance of hls offlclal duLles and funcLlons unllke Lhe leglslaLlve and [udlclal
branch only one consLlLuLes Lhe execuLlve branch and anyLhlng whlch lmpalrs hls
usefulness ln Lhe dlscharge of Lhe many greaL and lmporLanL duLles lmposed upon
hlm by Lhe ConsLlLuLlon necessarlly lmpalrs Lhe operaLlon of Lhe CovernmenL
Powever Lhls does noL mean LhaL Lhe resldenL ls noL accounLable Lo anyone Llke
any oLher offlclal he remalns accounLable Lo Lhe people buL he may be removed
from offlce only ln Lhe mode provlded by law and LhaL ls by lmpeachmenL
8 SU8S1AN1IVL
l keview of loctuo/ 8oses
eLlLloners malnLaln LhaL 1017 has no facLual basls Pence lL was noL
necessary" for resldenL Arroyo Lo lssue such roclamaLlon
1he lssue of wheLher Lhe CourL may revlew Lhe facLual bases of Lhe resldenL's
exerclse of hls CommanderlnChlef power has reached lLs dlsLllled polnL from Lhe
lndulgenL days of 8otceloo v 8oket and Mooteoeqto v costooeJo Lo
Lhe volaLlle era of loosooq v Cotclo Apoloo It v otlle ooJ CotcloloJlllo
v otlle 1he Lugofwar always cuLs across Lhe llne deflnlng pollLlcal quesLlons"
parLlcularly Lhose quesLlons ln regard Lo whlch full dlscreLlonary auLhorlLy has
been delegaLed Lo Lhe leglslaLlve or execuLlve branch of Lhe governmenL" 8otceloo
ooJ Mooteoeqto were ln unlson ln declarlng LhaL Lhe author|ty to dec|de hether
an ex|gency has ar|sen be|ongs to the 9res|dent and h|s dec|s|on |s f|na| and
conc|us|ve on the courts loosooq Look Lhe opposlLe vlew 1here Lhe members of
Lhe CourL were unanlmous ln Lhe convlcLlon LhaL Lhe CourL has Lhe auLhorlLy Lo
lnqulre lnLo Lhe exlsLence of facLual bases ln order Lo deLermlne Lhelr consLlLuLlonal
sufflclency Irom the pr|nc|p|e of separat|on of poers |t sh|fted the focus to the
system of checks and ba|ances "under h|ch the 9res|dent |s supreme x x x on|y
if and when he acts |th|n the sphere a||otted to h|m by the 8as|c La and
the author|ty to determ|ne hether or not he has so acted |s vested |n the
Iud|c|a| Department which in this respect |s |n turn
const|tut|ona||y supreme" ln 1973 Lhe unanlmous CourL of loosooq was dlvlded
ln Apoloo v otlle 1here Lhe CourL was almosL evenly dlvlded on Lhe
lssue of wheLher Lhe valldlLy of Lhe lmposlLlon of MarLlal Law ls a
pollLlcal or [usLlclable quesLlon 1hen came CotcloloJlllo v otlle whlch greaLly
dlluLed loosooq lL declared LhaL Lhere ls a need Lo reexamlne Lhe laLLer case
raLloclnaLlng LhaL |n t|mes of ar or nat|ona| emergency the 9res|dent must be
g|ven abso|ute contro| for the very ||fe of the nat|on and the government |s |n
great per|| 1he 9res|dent |t |ntoned |s anserab|e on|y to h|s consc|ence the
9eop|e and God"
1he loteqtoteJ 8ot of tbe lblllpploes v 2omoto a recenL case mosL perLlnenL Lo
Lhese cases aL bar echoed a prlnclple slmllar Lo loosooq Whlle Lhe CourL
consldered Lhe resldenL's calllngouL" power as a dlscreLlonary power solely
vesLed ln hls wlsdom lL sLressed LhaL th|s does not prevent an exam|nat|on of
hether such poer as exerc|sed |th|n perm|ss|b|e const|tut|ona| ||m|ts or
hether |t as exerc|sed |n a manner const|tut|ng grave abuse of d|scret|on"
1hls rullng ls malnly a resulL of Lhe CourL's rellance on SecLlon 1 ArLlcle vlll of
1987 ConsLlLuLlon whlch forLlfles Lhe auLhorlLy of Lhe courLs Lo deLermlne ln an
approprlaLe acLlon Lhe valldlLy of Lhe acLs of Lhe pollLlcal deparLmenLs under Lhe
new deflnlLlon of [udlclal power Lhe courLs are auLhorlzed noL only Lo seLLle acLual
conLroversles lnvolvlng rlghLs whlch are legally demandable and enforceable" buL
also to determ|ne hether or not there has been a grave abuse of d|scret|on
amount|ng to |ack or excess of [ur|sd|ct|on on the part of any branch or
|nstrumenta||ty of the government" 1he laLLer parL of Lhe auLhorlLy represenLs a
broadenlng of [udlclal power Lo enable Lhe courLs of [usLlce Lo revlew whaL was
before a forbldden LerrlLory Lo wlL Lhe dlscreLlon of Lhe pollLlcal deparLmenLs of
Lhe governmenL lL speaks of [udlclal prerogaLlve noL only ln Lerms of poer buL
also of duty

As Lo how Lhe CourL may lnqulre lnLo Lhe resldenL's exerclse of power loosooq
adopLed Lhe LesL LhaL [udlclal lnqulry can qo oo fottbet Lhan Lo saLlsfy Lhe CourL oot
LhaL Lhe resldenL's declslon ls cottect" buL LhaL Lhe resldenL dld noL acL
otblttotlly" 1hus Lhe sLandard lald down ls noL correcLness buL arblLrarlness ln
loteqtoteJ 8ot of tbe lblllpploes Lhls CourL furLher ruled LhaL |t |s |ncumbent upon
the pet|t|oner to sho that the 9res|dent's dec|s|on |s tota||y bereft of factua|
bas|s" and LhaL lf he falls by way of proof Lo supporL hls asserLlon Lhen th|s Court
cannot undertake an |ndependent |nvest|gat|on beyond the p|ead|ngs"
eLlLloners falled Lo show LhaL resldenL Arroyo's exerclse of Lhe calllngouL power
by lssulng 1017 ls LoLally berefL of facLual basls A readlng of Lhe SollclLor
Ceneral's ConsolldaLed CommenL and Memorandum shows a deLalled narraLlon of
33

Lhe evenLs leadlng Lo Lhe lssuance of 1017 wlLh supporLlng reporLs formlng parL
of Lhe records MenLloned are Lhe escape of Lhe Magdalo Croup Lhelr audaclous
LhreaL of Lhe MoqJolo uuoy Lhe defecLlons ln Lhe mlllLary parLlcularly ln Lhe
hlllpplne Marlnes and Lhe reprovlng sLaLemenLs from Lhe communlsL leaders
1here was also Lhe MlnuLes of Lhe lnLelllgence 8eporL and SecurlLy Croup of Lhe
hlllpplne Army showlng Lhe growlng alllance beLween Lhe nA and Lhe mlllLary
eLlLloners presenLed noLhlng Lo refuLe such evenLs 1hus absenL any conLrary
allegaLlons Lhe CourL ls convlnced LhaL Lhe resldenL was [usLlfled ln lssulng
1017 calllng for mlllLary ald
lndeed [udglng Lhe serlousness of Lhe lncldenLs resldenL Arroyo was noL expecLed
Lo slmply fold her arms and do noLhlng Lo prevenL or suppress whaL she belleved
was lawless vlolence lnvaslon or rebelllon Powever Lhe exerclse of such power or
duLy musL noL sLlfle llberLy
ll onstitutiono/ity of PP 1017 ond 6 No 5
Doctr|nes of Severa| 9o||t|ca| 1heor|sts
on the 9oer of the 9res|dent
|n 1|mes of Lmergency
1hls case brlngs Lo fore a conLenLlous sub[ecL Lhe power of Lhe resldenL ln Llmes
of emergency A gllmpse aL Lhe varlous pollLlcal Lheorles relaLlng Lo Lhls sub[ecL
provldes an adequaLe backdrop for our ensulng dlscusslon
!ohn Locke descrlblng Lhe archlLecLure of clvll governmenL called upon Lhe Lngllsh
docLrlne of prerogaLlve Lo cope wlLh Lhe problem of emergency ln Llmes of danger
Lo Lhe naLlon poslLlve law enacLed by Lhe leglslaLure mlghL be lnadequaLe or even a
faLal obsLacle Lo Lhe prompLness of acLlon necessary Lo averL caLasLrophe ln Lhese
slLuaLlons Lhe Crown reLalned a prerogaLlve poer to act accord|ng to d|scret|on
for the pub||c good |thout the proscr|pt|on of the |a and somet|mes even
aga|nst |t" 8uL Locke recognlzed LhaL Lhls moral resLralnL mlghL noL sufflce Lo avold
abuse of prerogaLlve powers Jho sha|| [udge the need for resort|ng to the
prerogat|ve and ho may |ts abuse be avo|ded? Pere Locke readlly admlLLed
defeaL suggesLlng LhaL "the peop|e have no other remedy |n th|s as |n a|| other
cases here they have no [udge on earth but to appea| to eaven"
!ean!acques 8ousseau also assumed Lhe need for Lemporary suspenslon of
democraLlc processes of governmenL ln Llme of emergency Accordlng Lo hlm
1he lnflexlblllLy of Lhe laws whlch prevenLs Lhem from adopLlng Lhemselves Lo
clrcumsLances may ln cerLaln cases render Lhem dlsasLrous and make Lhem brlng
abouL aL a Llme of crlsls Lhe ruln of Lhe SLaLe
lL ls wrong Lherefore Lo wlsh Lo make pollLlcal lnsLlLuLlons as sLrong as Lo render lL
lmposslble Lo suspend Lhelr operaLlon Lven SparLa allowed lLs law Lo lapse
lf Lhe perll ls of such a klnd LhaL Lhe paraphernalla of Lhe laws are an obsLacle Lo
Lhelr preservaLlon Lhe meLhod ls Lo nomlnaLe a supreme lawyer who shall sllence
all Lhe laws and suspend for a momenL Lhe soverelgn auLhorlLy ln such a case
Lhere ls no doubL abouL Lhe general wlll and lL clear LhaL Lhe people's flrsL lnLenLlon
ls LhaL Lhe SLaLe shall noL perlsh
8osseau dld noL fear Lhe abuse of Lhe emergency dlcLaLorshlp or supreme
mag|stracy" as he Lermed lL lor hlm lL would more llkely be cheapened by
lndlscreeL use" Pe was unwllllng Lo rely upon an appea| to heaven" lnsLead he
relled upon a Lenure of offlce of prescrlbed duraLlon Lo avold perpeLuaLlon of Lhe
dlcLaLorshlp
!ohn SLuarL Mlll concluded hls ardenL defense of represenLaLlve governmenL I am
far from condemn|ng |n cases of extreme necess|ty the assumpt|on of abso|ute
poer |n the form of a temporary d|ctatorsh|p"
nlcollo Machlavelll's vlew of emergency powers as one elemenL ln Lhe whole
scheme of llmlLed governmenL furnlshed an lronlc conLrasL Lo Lhe Lockean Lheory
of prerogaLlve Pe recognlzed and aLLempLed Lo brldge Lhls chasm ln democraLlc
pollLlcal Lheory Lhus
now ln a wellordered socleLy lL should never be necessary Lo resorL Lo
exLra consLlLuLlonal measures for alLhough Lhey may for a Llme be beneflclal yeL
Lhe precedenL ls pernlclous for lf Lhe pracLlce ls once esLabllshed for good ob[ecLs
Lhey wlll ln a llLLle whlle be dlsregarded under LhaL preLexL buL for evll purposes
1hus no republlc wlll ever be perfecL lf she has noL by law provlded for everyLhlng
havlng a remedy for every emergency and flxed rules for applylng lL
Machlavelll ln conLrasL Lo Locke 8osseau and Mlll soughL Lo lncorporaLe
lnLo Lhe consLlLuLlon a regularlzed sysLem of sLandby emergency powers Lo be
lnvoked wlLh sulLable checks and conLrols ln Llme of naLlonal danger Pe aLLempLed
forLhrlghLly Lo meeL Lhe problem of comblnlng a capaclous reserve of power and
speed and vlgor ln lLs appllcaLlon ln Llme of emergency wlLh effecLlve consLlLuLlonal
resLralnLs

ConLemporary pollLlcal LheorlsLs addresslng Lhemselves Lo Lhe problem of response
Lo emergency by consLlLuLlonal democracles have employed Lhe docLrlne of
consLlLuLlonal dlcLaLorshlp lrederlck M WaLklns saw no reason hy abso|ut|sm
shou|d not be used as a means for the defense of ||bera| |nst|tut|ons" provlded lL
serves to protect estab||shed |nst|tut|ons from the danger of permanent |n[ury |n
a per|od of temporary emergency and |s fo||oed by a prompt return to the
prev|ous forms of po||t|ca| ||fe" Pe recognlzed Lhe Lwo (2) key elemenLs of Lhe
problem of emergency governance as well as all consLlLuLlonal governance
|ncreas|ng adm|n|strat|ve poers of the execut|ve h||e at the same t|me
"|mpos|ng ||m|tat|on upon that poer" WaLklns placed hls real falLh ln a scheme
of consLlLuLlonal dlcLaLorshlp 1hese are Lhe condlLlons of success of such a
dlcLaLorshlp "1he per|od of d|ctatorsh|p must be re|at|ve|y shortD|ctatorsh|p
shou|d a|ays be str|ct|y |eg|t|mate |n characterI|na| author|ty to determ|ne the
need for d|ctatorsh|p |n any g|ven case must never rest |th the d|ctator
36

h|mse|f" and Lhe ob[ecLlve of such an emergency dlcLaLorshlp should be str|ct
po||t|ca| conservat|sm"
Carl ! lrledrlch casL hls analysls ln Lerms slmllar Lo Lhose of WaLklns lL ls a
problem of concenLraLlng power ln a governmenL where power has consclously
been dlvlded Lo cope wlLh slLuaLlons of unprecedenLed magnlLude and gravlLy
1here musL be a broad granL of powers sub[ecL Lo equally sLrong llmlLaLlons as Lo
who shall exerclse such powers when for how long and Lo whaL end" lrledrlch
Loo offered crlLerla for [udglng Lhe adequacy of any of scheme of emergency
powers Lo wlL "1he emergency execut|ve must be appo|nted by const|tut|ona|
means |e he must be |eg|t|mate he shou|d not en[oy poer to determ|ne the
ex|stence of an emergency emergency poers shou|d be exerc|sed under a str|ct
t|me ||m|tat|on and |ast the ob[ect|ve of emergency act|on must be the defense
of the const|tut|ona| order"
CllnLon L 8osslLer afLer surveylng Lhe hlsLory of Lhe employmenL of emergency
powers ln CreaL 8rlLaln lrance Welmar Cermany and Lhe unlLed SLaLes reverLed
Lo a descrlpLlon of a scheme of consLlLuLlonal dlcLaLorshlp" as soluLlon Lo Lhe
vexlng problems presenLed by emergency Llke WaLklns and lrledrlch he sLaLed o
ptlotl Lhe condlLlons of success of Lhe consLlLuLlonal dlcLaLorshlp" Lhus
1) no general reglme or parLlcular lnsLlLuLlon of consLlLuLlonal dlcLaLorshlp should
be lnlLlaLed unless lL ls necessary or even lndlspensable Lo Lhe preservaLlon of Lhe
SLaLe and lLs consLlLuLlonal order
2) Lhe declslon Lo lnsLlLuLe a consLlLuLlonal dlcLaLorshlp should never be ln Lhe
hands of Lhe man or men who wlll consLlLuLe Lhe dlcLaLor
3) no governmenL should lnlLlaLe a consLlLuLlonal dlcLaLorshlp wlLhouL maklng
speclflc provlslons for lLs LermlnaLlon
4) all uses of emergency powers and all read[usLmenLs ln Lhe organlzaLlon of Lhe
governmenL should be effecLed ln pursulL of consLlLuLlonal or legal requlremenLs
S) no dlcLaLorlal lnsLlLuLlon should be adopLed no rlghL lnvaded no regular
procedure alLered any more Lhan ls absoluLely necessary for Lhe conquesL of Lhe
parLlcular crlsls
6) 1he measures adopLed ln Lhe prosecuLlon of Lhe a consLlLuLlonal dlcLaLorshlp
should never be permanenL ln characLer or effecL
7) 1he dlcLaLorshlp should be carrled on by persons represenLaLlve of every parL of
Lhe clLlzenry lnLeresLed ln Lhe defense of Lhe exlsLlng consLlLuLlonal order
8) ulLlmaLe responslblllLy should be malnLalned for every acLlon Laken under a
consLlLuLlonal dlcLaLorshlp
9) 1he declslon Lo LermlnaLe a consLlLuLlonal dlcLaLorshlp llke Lhe declslon Lo
lnsLlLuLe one should never be ln Lhe hands of Lhe man or men who consLlLuLe Lhe
dlcLaLor
10) no consLlLuLlonal dlcLaLorshlp should exLend beyond Lhe LermlnaLlon of Lhe
crlsls for whlch lL was lnsLlLuLed
11) Lhe LermlnaLlon of Lhe crlsls musL be followed by a compleLe reLurn as
posslble Lo Lhe pollLlcal and governmenLal condlLlons exlsLlng prlor Lo Lhe lnlLlaLlon
of Lhe consLlLuLlonal dlcLaLorshlp

8osslLer accorded Lo leglslaLure a far greaLer role ln Lhe overslghL exerclse of
emergency powers Lhan dld WaLklns Pe would secure Lo Congress flnal
responslblllLy for declarlng Lhe exlsLence or LermlnaLlon of an emergency and he
places greaL falLh ln Lhe effecLlveness of congresslonal lnvesLlgaLlng commlLLees
5cott and cottet ln analyzlng Lhe above conLemporary Lheorles ln llghL of
recenL experlence were one ln saylng LhaL the suggest|on that democrac|es
surrender the contro| of government to an author|tar|an ru|er |n t|me of grave
danger to the nat|on |s not based upon sound const|tut|ona| theory" 1o appralse
emergency power ln Lerms of consLlLuLlonal dlcLaLorshlp serves merely Lo dlsLorL
Lhe problem and hlnder reallsLlc analysls lL maLLers noL wheLher Lhe Lerm
dlcLaLor" ls used ln lLs normal sense (as applled Lo auLhorlLarlan rulers) or ls
employed Lo embrace all chlef execuLlves admlnlsLerlng emergency powers
Powever used consLlLuLlonal dlcLaLorshlp" cannoL be dlvorced from Lhe
lmpllcaLlon of suspenslon of Lhe processes of consLlLuLlonallsm 1hus Lhey favored
lnsLead Lhe concepL of consLlLuLlonallsm" arLlculaLed by Charles P Mcllwaln
A concepL of consLlLuLlonallsm whlch ls less mlsleadlng ln Lhe analysls of problems
of emergency powers and whlch ls conslsLenL wlLh Lhe flndlngs of Lhls sLudy ls LhaL
formulaLed by Charles P Mcllwaln Whlle lL does noL by any means necessarlly
exclude some lndeLermlnaLe llmlLaLlons upon Lhe subsLanLlve powers of
governmenL full emphasls ls placed upon procedura| ||m|tat|ons and po||t|ca|
respons|b|||ty Mcllwaln clearly recognlzed Lhe need Lo repose adequaLe power ln
governmenL And ln dlscusslng Lhe meanlng of consLlLuLlonallsm he lnslsLed LhaL
Lhe h|stor|ca| and proper test of const|tut|ona||sm as the ex|stence of adequate
processes for keep|ng government respons|b|e Pe refused Lo equaLe
consLlLuLlonallsm wlLh Lhe enfeebllng of governmenL by an exaggeraLed emphasls
upon separaLlon of powers and subsLanLlve llmlLaLlons on governmenLal power Pe
found LhaL Lhe really effecLlve checks on despoLlsm have conslsLed noL ln Lhe
weakenlng of governmenL buL buL raLher ln Lhe ||m|t|ng of |t beLween whlch Lhere
ls a greaL and very slgnlflcanL dlfference In assoc|at|ng const|tut|ona||sm |th
"||m|ted" as d|st|ngu|shed from "eak" government McI|a|n meant
government ||m|ted to the order|y procedure of |a as opposed to the processes
of force 1he to fundamenta| corre|at|ve e|ements of const|tut|ona||sm for h|ch
a|| |overs of ||berty must yet f|ght are the |ega| ||m|ts to arb|trary poer and a
comp|ete po||t|ca| respons|b|||ty of government to the governed
ln Lhe flnal analysls Lhe varlous approaches Lo emergency of Lhe above pollLlcal
LheorlsLs from Lock's Lheory of prerogaLlve" Lo WaLklns' docLrlne of
consLlLuLlonal dlcLaLorshlp" and evenLually Lo Mcllwaln's prlnclple of
consLlLuLlonallsm" ulLlmaLely alm Lo solve one real problem ln emergency
37

governance le that of a||ott|ng |ncreas|ng areas of d|scret|onary poer to the
Ch|ef Lxecut|ve h||e |nsur|ng that such poers ||| be exerc|sed |th a sense of
po||t|ca| respons|b|||ty and under effect|ve ||m|tat|ons and checks
Cur ConsLlLuLlon has falrly coped wlLh Lhls problem lresh from Lhe feLLers of a
represslve reglme Lhe 1986 ConsLlLuLlonal Commlsslon ln drafLlng Lhe 1987
ConsLlLuLlon endeavored Lo creaLe a governmenL ln Lhe concepL of !usLlce
!ackson's balanced power sLrucLure" LxecuLlve leglslaLlve and [udlclal powers
are dlspersed Lo Lhe resldenL Lhe Congress and Lhe Supreme CourL respecLlvely
Lach ls supreme wlLhln lLs own sphere 8ut none has the monopo|y of poer |n
t|mes of emergency Lach branch |s g|ven a ro|e to serve as ||m|tat|on or check
upon the other 1hls sysLem does noL eaken Lhe resldenL lL [usL ||m|ts hls
power uslng Lhe language of Mcllwaln ln oLher words ln Llmes of emergency our
ConsLlLuLlon reasonably demands LhaL we repose a cerLaln amounL of falLh ln Lhe
baslc lnLegrlLy and wlsdom of Lhe Chlef LxecuLlve buL aL Lhe same Llme |t ob||ges
h|m to operate |th|n carefu||y prescr|bed procedura| ||m|tat|ons
a "Iac|a| Cha||enge"
eLlLloners conLend LhaL 1017 ls vold on lLs face because of lLs overbreadLh"
1hey clalm LhaL lLs enforcemenL encroached on boLh unproLecLed and proLecLed
rlghLs under SecLlon 4 ArLlcle lll of Lhe ConsLlLuLlon and senL a chllllng effecL" Lo
Lhe clLlzens
A faclal revlew of 1017 uslng Lhe overbreadLh docLrlne ls uncalled for
lltst ooJ fotemost Lhe overbreadLh docLrlne ls an analyLlcal Lool developed for
LesLlng on Lhelr faces" sLaLuLes ln free speech cases also known under Lhe
Amerlcan Law as llrsL AmendmenL cases
A plaln readlng of 1017 shows LhaL lL ls noL prlmarlly dlrecLed Lo speech or even
speechrelaLed conducL lL ls acLually a call upon Lhe Al Lo prevenL or suppress all
forms of |a|ess v|o|ence ln uolteJ 5totes v 5oletoo Lhe uS Supreme CourL held
LhaL e have not recogn|zed an 'overbreadth' doctr|ne outs|de the ||m|ted
context of the I|rst Amendment" %freedom of speech)
Moreover Lhe overbreadLh docLrlne ls noL lnLended for LesLlng Lhe valldlLy of a law
LhaL reflecLs leglLlmaLe sLaLe lnLeresL ln malnLalnlng comprehenslve conLrol over
harmful consLlLuLlonally unproLecLed conducL" undoubLedly lawless vlolence
lnsurrecLlon and rebelllon are consldered harmful" and consLlLuLlonally
unproLecLed conducL" ln 8tooJtlck v Oklobomo lL was held
lL remalns a 'maLLer of no llLLle dlfflculLy' Lo deLermlne when a law may properly be
held vold on lLs face and when 'such summary acLlon' ls lnapproprlaLe 8ut the
p|a|n |mport of our cases |s at the very |east that fac|a| overbreadth ad[ud|cat|on
|s an except|on to our trad|t|ona| ru|es of pract|ce and that |ts funct|on a ||m|ted
one at the outset attenuates as the other|se unprotected behav|or that |t
forb|ds the State to sanct|on moves from 'pure speech' toard conduct and that
conduct even |f express|ve fa||s |th|n the scope of other|se va||d cr|m|na|
|as that ref|ect |eg|t|mate state |nterests |n ma|nta|n|ng comprehens|ve contro|s
over harmfu| const|tut|ona||y unprotected conduct
1hus clalms of faclal overbreadLh are enLerLalned ln cases lnvolvlng sLaLuLes
whlch by the|r terms seek Lo regulaLe only spoken ords" and agaln LhaL
overbreadth c|a|ms |f enterta|ned at a|| have been curta||ed hen |nvoked
aga|nst ord|nary cr|m|na| |as that are sought to be app||ed to protected
conduct" Pere Lhe lnconLroverLlble facL remalns LhaL 1017 perLalns Lo a
specLrum of conduct noL free speech whlch ls manlfesLly sub[ecL Lo sLaLe
regulaLlon
5ecooJ faclal lnvalldaLlon of laws ls consldered as man|fest|y strong
med|c|ne" Lo be used spar|ng|y and on|y as a |ast resort" and ls genera||y
d|sfavored" 1he reason for Lhls ls obvlous Lmbedded ln Lhe LradlLlonal rules
governlng consLlLuLlonal ad[udlcaLlon ls Lhe prlnclple LhaL a person Lo whom a law
may be applled wlll noL be heard Lo challenge a law on Lhe ground LhaL lL may
concelvably be applled unconsLlLuLlonally Lo oLhers le |n other s|tuat|ons not
before the Court A wrlLer and scholar ln ConsLlLuLlonal Law explalns furLher
1he most d|st|nct|ve feature of the overbreadth techn|que |s that |t marks an
except|on to some of the usua| ru|es of const|tut|ona| ||t|gat|on Crd|nar||y a
part|cu|ar ||t|gant c|a|ms that a statute |s unconst|tut|ona| as app||ed to h|m or
her |f the ||t|gant preva||s the courts carve aay the unconst|tut|ona| aspects of
the |a by |nva||dat|ng |ts |mproper app||cat|ons on a case to case bas|s
Moreover cha||engers to a |a are not perm|tted to ra|se the r|ghts of th|rd
part|es and can on|y assert the|r on |nterests In overbreadth ana|ys|s those
ru|es g|ve ay cha||enges are perm|tted to ra|se the r|ghts of th|rd part|es and
Lhe courL lnvalldaLes Lhe enLlre sLaLuLe on lLs face" noL merely as applled for" so
LhaL Lhe overbroad law becomes unenforceable unLll a properly auLhorlzed courL
consLrues lL more narrowly 1he facLor LhaL moLlvaLes courLs Lo deparL from Lhe
normal ad[udlcaLory rules ls Lhe concern wlLh Lhe chllllng" deLerrenL effecL of Lhe
overbroad sLaLuLe on Lhlrd parLles noL courageous enough Lo brlng sulL 1he CourL
assumes LhaL an overbroad law's very exlsLence may cause oLhers noL before Lhe
courL Lo refraln from consLlLuLlonally proLecLed speech or expresslon" An
overbreadLh rullng ls deslgned Lo remove LhaL deLerrenL effecL on Lhe speech of
Lhose Lhlrd parLles


ln oLher words a faclal challenge uslng Lhe overbreadLh docLrlne wlll requlre Lhe
CourL Lo examlne 1017 and plnpolnL lLs flaws and defecLs noL on Lhe basls of lLs
acLual operaLlon Lo peLlLloners buL on Lhe assumpLlon or predlcLlon LhaL lLs very
exlsLence may cause others not before the Court Lo refraln from consLlLuLlonally
proLecLed speech or expresslon ln oooqet v nottls lL was held LhaL
1he Lask of analyzlng a proposed sLaLuLe plnpolnLlng lLs deflclencles and
requlrlng correcLlon of Lhese deflclencles before Lhe sLaLuLe ls puL lnLo effecL ls
38

rarely lf ever an approprlaLe Lask for Lhe [udlclary 1he comblnaLlon of Lhe re|at|ve
remoteness of the controversy Lhe |mpact on the |eg|s|at|ve process of the re||ef
sought and above all the specu|at|ve and amorphous nature of the requ|red ||ne
by||ne ana|ys|s of deta||ed statutesordlnarlly resulLs ln a klnd of case LhaL ls
ho||y unsat|sfactory for decldlng consLlLuLlonal quesLlons whlchever way Lhey
mlghL be declded
And tbltJ a faclal challenge on Lhe ground of overbreadLh ls Lhe mosL dlfflculL
challenge Lo mounL successfully slnce Lhe challenger musL esLabllsh LhaL there can
be no |nstance hen the assa||ed |a may be va||d Pere peLlLloners dld noL even
aLLempL Lo show wheLher Lhls slLuaLlon exlsLs
eLlLloners llkewlse seek a faclal revlew of 1017 on Lhe ground of vagueness
1hls Loo ls unwarranLed
8elaLed Lo Lhe overbreadLh" docLrlne ls Lhe vold for vagueness docLrlne" whlch
holds LhaL a |a |s fac|a||y |nva||d |f men of common |nte|||gence must necessar||y
guess at |ts mean|ng and d|ffer as to |ts app||cat|on" lL ls sub[ecL Lo Lhe same
prlnclples governlng overbreadLh docLrlne lor one lL ls also an analyLlcal Lool for
LesLlng on Lhelr faces" statutes |n free speech cases And llke overbreadLh lL ls
sald LhaL a llLlganL may challenge a sLaLuLe on lLs face only lf lL ls vague |n a|| |ts
poss|b|e app||cat|ons Aga|n pet|t|oners d|d not even attempt to sho that 99
1017 |s vague |n a|| |ts app||cat|on 1hey also falled Lo esLabllsh LhaL men of
common lnLelllgence cannoL undersLand Lhe meanlng and appllcaLlon of 1017
b Const|tut|ona| 8as|s of 99 1017
now on Lhe consLlLuLlonal foundaLlon of 1017
1he operaLlve porLlon of 1017 may be dlvlded lnLo Lhree lmporLanL provlslons
Lhus
lirst provision
by vlrLue of Lhe power vesLed upon me by SecLlon 18 ArLllce vll do hereby
command Lhe Armed lorces of Lhe hlllpplnes Lo malnLaln law and order
LhroughouL Lhe hlllpplnes prevenL or suppress all forms of lawless vlolence as well
any acL of lnsurrecLlon or rebelllon"
5econd provision
and Lo enforce obedlence Lo all Lhe laws and Lo all decrees orders and
regulaLlons promulgaLed by me personally or upon my dlrecLlon"
@hird provision
as provlded ln SecLlon 17 ArLlcle xll of Lhe ConsLlLuLlon do hereby declare a SLaLe
of naLlonal Lmergency"
lirst Provision o//inqout Power

1he flrsL provlslon perLalns Lo Lhe resldenL's calllngouL power ln
39

5oolokos v xecotlve 5ectetoty Lhls CourL Lhrough Mr !usLlce uanLe C 1lnga held
LhaL SecLlon 18 ArLlcle vll of Lhe ConsLlLuLlon reproduced as follows
Sec 18 1he resldenL shall be Lhe CommanderlnChlef of all armed forces
of Lhe hlllpplnes and henever |t becomes necessary he may ca|| out such armed
forces to prevent or suppress |a|ess v|o|ence |nvas|on or rebe|||on ln case of
lnvaslon or rebelllon when Lhe publlc safeLy requlres lL he may for a perlod noL
exceedlng slxLy days suspend Lhe prlvllege of Lhe wrlL of bobeos cotpos or place Lhe
hlllpplnes or any parL Lhereof under marLlal law WlLhln forLyelghL hours from Lhe
proclamaLlon of marLlal law or Lhe suspenslon of Lhe prlvllege of Lhe wrlL of bobeos
cotpos Lhe resldenL shall submlL a reporL ln person or ln wrlLlng Lo Lhe Congress
1he Congress voLlng [olnLly by a voLe of aL leasL a ma[orlLy of all lLs Members ln
regular or speclal sesslon may revoke such proclamaLlon or suspenslon whlch
revocaLlon shall noL be seL aslde by Lhe resldenL upon Lhe lnlLlaLlve of Lhe
resldenL Lhe Congress may ln Lhe same manner exLend such proclamaLlon or
suspenslon for a perlod Lo be deLermlned by Lhe Congress lf Lhe lnvaslon or
rebelllon shall perslsL and publlc safeLy requlres lL
1he Congress lf noL ln sesslon shall wlLhln LwenLyfour hours
followlng such proclamaLlon or suspenslon convene ln accordance wlLh lLs rules
wlLhouL need of a call
1he Supreme CourL may revlew ln an approprlaLe proceedlng flled by any
clLlzen Lhe sufflclency of Lhe facLual bases of Lhe proclamaLlon of marLlal law or Lhe
suspenslon of Lhe prlvllege of Lhe wrlL or Lhe exLenslon Lhereof and musL
promulgaLe lLs declslon Lhereon wlLhln LhlrLy days from lLs flllng
A sLaLe of marLlal law does noL suspend Lhe operaLlon of Lhe ConsLlLuLlon
nor supplanL Lhe funcLlonlng of Lhe clvll courLs or leglslaLlve assemblles nor
auLhorlze Lhe confermenL of [urlsdlcLlon on mlllLary courLs and agencles over
clvlllans where clvll courLs are able Lo funcLlon nor auLomaLlcally suspend Lhe
prlvllege of Lhe wrlL
1he suspenslon of Lhe prlvllege of Lhe wrlL shall apply only Lo
persons [udlclally charged for rebelllon or offenses lnherenL ln or dlrecLly connecLed
wlLh lnvaslon
uurlng Lhe suspenslon of Lhe prlvllege of Lhe wrlL any person
Lhus arresLed or deLalned shall be [udlclally charged wlLhln Lhree days oLherwlse he
shall be released
granLs Lhe resldenL as CommanderlnChlef a sequence" of graduaLed powers
lrom Lhe mosL Lo Lhe leasL benlgn Lhese are Lhe calllngouL power Lhe power Lo
suspend Lhe prlvllege of Lhe wrlL of bobeos cotpos and Lhe power Lo declare
MarLlal Law ClLlng loteqtoteJ 8ot of tbe lblllpploes v 2omoto Lhe CourL ruled
LhaL Lhe only crlLerlon for Lhe exerclse of Lhe calllngouL power ls LhaL henever |t
becomes necessary" Lhe resldenL may call Lhe armed forces to prevent or
suppress |a|ess v|o|ence |nvas|on or rebe|||on" Ate tbese cooJltloos pteseot lo
tbe lostoot coses? As sLaLed earller conslderlng Lhe clrcumsLances Lhen prevalllng
resldenL Arroyo found lL necessary Lo lssue 1017 Cwlng Lo her Cfflce's vasL
lnLelllgence neLwork she ls ln Lhe besL poslLlon Lo deLermlne Lhe acLual condlLlon of
Lhe counLry
under Lhe calllngouL power Lhe resldenL may summon Lhe armed forces Lo
ald hlm ln suppresslng |a|ess v|o|ence |nvas|on and rebe|||on 1hls lnvolves
ordlnary pollce acLlon 8uL every acL LhaL goes beyond Lhe resldenL's calllngouL
power ls consldered lllegal or oltto vltes lor Lhls reason a resldenL musL be
careful ln Lhe exerclse of hls powers Pe cannoL lnvoke a greaLer power when he
wlshes Lo acL under a lesser power 1here lles Lhe wlsdom of our ConsLlLuLlon Lhe
greaLer Lhe power Lhe greaLer are Lhe llmlLaLlons
lL ls perLlnenL Lo sLaLe however LhaL Lhere ls a dlsLlncLlon beLween Lhe
resldenL's auLhorlLy Lo declare a sLaLe of rebelllon" (ln 5oolokos) and Lhe
auLhorlLy Lo proclalm a sLaLe of naLlonal emergency Whlle resldenL Arroyo's
auLhorlLy Lo declare a sLaLe of rebelllon" emanaLes from her powers as Chlef
LxecuLlve Lhe sLaLuLory auLhorlLy clLed ln 5oolokos was SecLlon 4 ChapLer 2 8ook ll
of Lhe 8evlsed AdmlnlsLraLlve Code of 1987 whlch provldes
SLC 4 roclamaLlons AcLs of Lhe resldenL flxlng a daLe or declarlng a
sLaLus or condlLlon of publlc momenL or lnLeresL upon Lhe exlsLence of whlch Lhe
operaLlon of a speclflc law or regulaLlon ls made Lo depend shall be promulgaLed ln
proclamaLlons whlch shall have Lhe force of an execuLlve order
resldenL Arroyo's declaraLlon of a sLaLe of rebelllon" was merely an acL
declarlng a sLaLus or condlLlon of publlc momenL or lnLeresL a declaraLlon allowed
under SecLlon 4 clLed above Such declaraLlon ln Lhe words of 5oolokos ls
harmless wlLhouL legal slgnlflcance and deemed noL wrlLLen ln Lhese cases
1017 ls more Lhan LhaL ln declarlng a sLaLe of naLlonal emergency resldenL
Arroyo dld noL only rely on SecLlon 18 ArLlcle vll of Lhe ConsLlLuLlon a provlslon
calllng on Lhe Al Lo prevenL or suppress lawless vlolence lnvaslon or rebelllon
She also relled on SecLlon 17 ArLlcle xll a provlslon on Lhe SLaLe's exLraordlnary
power Lo Lake over prlvaLelyowned publlc uLlllLy and buslness affecLed wlLh publlc
lnLeresL lndeed 1017 calls for Lhe exerclse of an aesome poer Cbvlously
such roclamaLlon cannoL be deemed harmless wlLhouL legal slgnlflcance or noL
wrlLLen as ln Lhe case of 5oolokos
Some of Lhe peLlLloners vehemenLly malnLaln LhaL 1017 ls acLually a
declaraLlon of MarLlal Law lL ls no so WhaL deflnes Lhe characLer of 1017 are
lLs wordlngs lL ls plaln Lhereln LhaL whaL Lhe resldenL lnvoked was her calllngouL
power
1he declaraLlon of MarLlal Law ls a warnlng Lo clLlzens LhaL Lhe mlllLary
power has been called upon by Lhe execuLlve Lo asslsL ln Lhe malnLenance of law
and order and LhaL whlle Lhe emergency lasLs Lhey musL upon paln of arresL and
punlshmenL noL commlL any acLs whlch wlll ln any way render more dlfflculL Lhe
resLoraLlon of order and Lhe enforcemenL of law"

60

ln hls 5totemeot befote tbe 5eoote commlttee oo Iostlce" on March 13 2006 Mr
!usLlce vlcenLe v Mendoza an auLhorlLy ln consLlLuLlonal law sald LhaL of Lhe Lhree
powers of Lhe resldenL as CommanderlnChlef Lhe power Lo declare MarLlal Law
poses Lhe mosL severe LhreaL Lo clvll llberLles lL ls a sLrong medlclne whlch should
noL be resorLed Lo llghLly lL cannoL be used Lo sLlfle or persecuLe crlLlcs of Lhe
governmenL lL ls placed ln Lhe keeplng of Lhe resldenL for Lhe purpose of enabllng
hlm Lo secure Lhe people from harm and Lo resLore order so LhaL Lhey can en[oy
Lhelr lndlvldual freedoms ln facL SecLlon 18 ArL vll provldes
A sLaLe of marLlal law does noL suspend Lhe operaLlon of Lhe ConsLlLuLlon nor
supplanL Lhe funcLlonlng of Lhe clvll courLs or leglslaLlve assemblles nor auLhorlze
Lhe confermenL of [urlsdlcLlon on mlllLary courLs and agencles over clvlllans where
clvll courLs are able Lo funcLlon nor auLomaLlcally suspend Lhe prlvllege of Lhe wrlL
!usLlce Mendoza also sLaLed LhaL 1017 ls noL a declaraLlon of MarLlal Law
lL ls no more Lhan a call by Lhe resldenL Lo Lhe armed forces Lo prevenL or suppress
lawless vlolence As such lL cannoL be used Lo [usLlfy acLs LhaL only under a valld
declaraLlon of MarLlal Law can be done lLs use for any oLher purpose ls a
perverslon of lLs naLure and scope and any acL done conLrary Lo lLs command ls
oltto vltes
!usLlce Mendoza furLher sLaLed LhaL speclflcally (a) arresLs and selzures
wlLhouL [udlclal warranLs (b) ban on publlc assemblles (c) Lakeover of news medla
and agencles and press censorshlp and (d) lssuance of resldenLlal uecrees are
powers whlch can be exerclsed by Lhe resldenL as CommanderlnChlef on|y where
Lhere ls a valld declaraLlon of MarLlal Law or suspenslon of Lhe wrlL of bobeos
cotpos

8ased on Lhe above dlsqulslLlon lL ls clear LhaL 1017 ls noL a declaraLlon of
MarLlal Law It |s mere|y an exerc|se of 9res|dent Arroyo's ca|||ngout poer for
Lhe armed forces Lo asslsL her ln prevenLlng or suppresslng lawless vlolence
5econd Provision "@oke ore" Power
1he second provlslon perLalns Lo Lhe power of Lhe resldenL Lo ensure LhaL Lhe laws
be falLhfully execuLed 1hls ls based on SecLlon 17 ArLlcle vll whlch reads
SLC 17 1he resldenL shall have conLrol of all Lhe execuLlve deparLmenLs bureaus
and offlces e sha|| ensure that the |as be fa|thfu||y executed
As Lhe LxecuLlve ln whom Lhe execuLlve power ls vesLed Lhe prlmary funcLlon of
Lhe resldenL ls Lo enforce Lhe laws as well as Lo formulaLe pollcles Lo be embodled
ln exlsLlng laws Pe sees Lo lL LhaL all laws are enforced by Lhe offlclals and
employees of hls deparLmenL 8efore assumlng offlce he ls requlred Lo Lake an
oaLh or afflrmaLlon Lo Lhe effecL LhaL as resldenL of Lhe hlllpplnes he wlll among
oLhers execuLe lLs laws" ln Lhe exerclse of such funcLlon Lhe resldenL lf
needed may employ Lhe powers aLLached Lo hls offlce as Lhe CommanderlnChlef
of all Lhe armed forces of Lhe counLry lncludlng Lhe hlllpplne naLlonal ollce under
Lhe ueparLmenL of lnLerlor and Local CovernmenL
eLlLloners especlally 8epresenLaLlves lrancls !oseph C Lscudero SaLur Ccampo
8afael Marlano 1eodoro Caslno Llza Maza and !osel vlrador argue LhaL 1017 ls
unconsLlLuLlonal as lL arrogaLed upon resldenL Arroyo Lhe power Lo enacL laws and
decrees ln vlolaLlon of SecLlon 1 ArLlcle vl of Lhe ConsLlLuLlon whlch vesLs Lhe
power Lo enacL laws ln Congress 1hey assall Lhe clause to enforce obed|ence to
a|| the |as and to a|| decrees orders and regu|at|ons promu|gated by me
persona||y or upon my d|rect|on"

eLlLloners' conLenLlon ls undersLandable A readlng of 1017 operaLlve clause
shows LhaL lL was llfLed from lormer resldenL Marcos' roclamaLlon no 1081
whlch parLly reads
NCJ 1LkLICkL I ILkDINAND L MAkCCS resldenL of Lhe hlllpplnes by vlrLue
of Lhe powers vesLed upon me by ArLlcle vll SecLlon 10 aragraph (2) of Lhe
ConsLlLuLlon do hereby place Lhe enLlre hlllpplnes as deflned ln ArLlcle 1 SecLlon 1
of Lhe ConsLlLuLlon under marLlal law and ln my capaclLy as Lhelr Commanderln
Chlef do hereby command the Armed Iorces of the 9h|||pp|nes to ma|nta|n |a
and order throughout the 9h|||pp|nes prevent or suppress a|| forms of |a|ess
v|o|ence as e|| as any act of |nsurrect|on or rebe|||on and to enforce obed|ence
to a|| the |as and decrees orders and regu|at|ons promu|gated by me persona||y
or upon my d|rect|on
We all know LhaL lL was 1081 whlch granLed resldenL Marcos leglslaLlve power
lLs enabllng clause sLaLes "to enforce obed|ence to a|| the |as and decrees
orders and regu|at|ons promu|gated by me persona||y or upon my d|rect|on"
upon Lhe oLher hand Lhe enabllng clause of 1017 lssued by resldenL Arroyo ls
to enforce obed|ence to a|| the |as and to o// decrees orders and regu|at|ons
promu|gated by me persona||y or upon my d|rect|on"
ls lt wltblo tbe Jomolo of lteslJeot Attoyo to ptomolqote #decrees?
1017 sLaLes ln parL Lo enforce obedlence Lo all Lhe laws and decrees x x x
promu|gated by me persona||y or upon my d|rect|on"
1he resldenL ls granLed an Crdlnance ower under ChapLer 2 8ook lll of LxecuLlve
Crder no 292 (AdmlnlsLraLlve Code of 1987) She may lssue any of Lhe followlng
Sec 2 xecotlve OtJets AcLs of Lhe resldenL provldlng for rules of a general or
permanenL characLer ln lmplemenLaLlon or execuLlon of consLlLuLlonal or sLaLuLory
powers shall be promulgaLed ln execuLlve orders
Sec 3 AJmlolsttotlve OtJets AcLs of Lhe resldenL whlch relaLe Lo parLlcular
aspecL of governmenLal operaLlons ln pursuance of hls duLles as admlnlsLraLlve
head shall be promulgaLed ln admlnlsLraLlve orders
Sec 4 ltoclomotloos AcLs of Lhe resldenL flxlng a daLe or declarlng a sLaLus or
condlLlon of publlc momenL or lnLeresL upon Lhe exlsLence of whlch Lhe operaLlon
of a speclflc law or regulaLlon ls made Lo depend shall be promulgaLed ln
proclamaLlons whlch shall have Lhe force of an execuLlve order
61

Sec 3 MemotooJom OtJets AcLs of Lhe resldenL on maLLers of admlnlsLraLlve
deLall or of subordlnaLe or Lemporary lnLeresL whlch only concern a parLlcular
offlcer or offlce of Lhe CovernmenL shall be embodled ln memorandum orders
Sec 6 MemotooJom cltcolots AcLs of Lhe resldenL on maLLers relaLlng Lo
lnLernal admlnlsLraLlon whlch Lhe resldenL deslres Lo brlng Lo Lhe aLLenLlon of all
or some of Lhe deparLmenLs agencles bureaus or offlces of Lhe CovernmenL for
lnformaLlon or compllance shall be embodled ln memorandum clrculars
Sec 7 Ceoetol ot 5peclol OtJets AcLs and commands of Lhe resldenL ln hls
capaclLy as CommanderlnChlef of Lhe Armed lorces of Lhe hlllpplnes shall be
lssued as general or speclal orders
resldenL Arroyo's ordlnance power ls llmlLed Lo Lhe foregolng lssuances She
cannoL lssue decrees slmllar Lo Lhose lssued by lormer resldenL Marcos under
1081 resldenLlal uecrees are laws whlch are of Lhe same caLegory and blndlng
force as sLaLuLes because Lhey were lssued by Lhe resldenL ln Lhe exerclse of hls
leglslaLlve power durlng Lhe perlod of MarLlal Law under Lhe 1973 ConsLlLuLlon
1h|s Court ru|es that the assa||ed 99 1017 |s unconst|tut|ona| |nsofar as |t grants
9res|dent Arroyo the author|ty to promu|gate "decrees" LeglslaLlve power ls
pecullarly wlLhln Lhe provlnce of Lhe LeglslaLure SecLlon 1 ArLlcle vl caLegorlcally
sLaLes LhaL the |eg|s|at|ve poer sha|| be vested |n the Congress of the
9h|||pp|nes h|ch sha|| cons|st of a Senate and a ouse of kepresentat|ves" 1o be
sure nelLher MarLlal Law nor a sLaLe of rebelllon nor a sLaLe of emergency can
[usLlfy resldenL Arroyo's exerclse of leglslaLlve power by lssulng decrees

coo lteslJeot Attoyo eofotce obeJleoce to oll Jectees ooJ lows tbtooqb tbe
mllltoty?
As Lhls CourL sLaLed earller resldenL Arroyo has no auLhorlLy Lo enacL
decrees lL follows LhaL Lhese decrees are vold and Lherefore cannoL be enforced
WlLh respecL Lo laws" she cannoL call Lhe mlllLary Lo enforce or lmplemenL cerLaln
laws such as cusLoms laws laws governlng famlly and properLy relaLlons laws on
obllgaLlons and conLracLs and Lhe llke She can only order Lhe mlllLary under
1017 Lo enforce laws perLlnenL Lo lLs duLy to suppress |a|ess v|o|ence
@hird Provision Power to @oke ver
1he perLlnenL provlslon of 1017 sLaLes
x x x and Lo enforce obedlence Lo all Lhe laws and Lo all decrees orders and
regulaLlons promulgaLed by me personally or upon my dlrecLlon and as prov|ded |n
Sect|on 17 Art|c|e kII of the Const|tut|on do hereby dec|are a state of nat|ona|
emergency
1he lmporL of Lhls provlslon ls LhaL resldenL Arroyo durlng Lhe sLaLe of naLlonal
emergency under 1017 can call Lhe mlllLary noL only Lo enforce obedlence Lo
all Lhe laws and Lo all decrees x x x" buL also Lo acL pursuanL Lo Lhe provlslon of
SecLlon 17 ArLlcle xll whlch reads
Sec 17 ln Llmes of naLlonal emergency when Lhe publlc lnLeresL so requlres
Lhe SLaLe may durlng Lhe emergency and under reasonable Lerms prescrlbed by lL
Lemporarlly Lake over or dlrecL Lhe operaLlon of any prlvaLelyowned publlc uLlllLy
or buslness affecLed wlLh publlc lnLeresL
wbot coolJ be tbe teosoo of lteslJeot Attoyo lo lovokloq tbe obove ptovlsloo wbeo
sbe lssoeJ ll 1017?
1he answer ls slmple uurlng Lhe exlsLence of Lhe sLaLe of naLlonal emergency
1017 purporLs Lo granL Lhe resldenL wlLhouL any auLhorlLy or delegaLlon from
Congress Lo Lake over or dlrecL Lhe operaLlon of any prlvaLelyowned publlc uLlllLy
or buslness affecLed wlLh publlc lnLeresL

1hls provlslon was flrsL lnLroduced ln Lhe 1973 ConsLlLuLlon as a producL of Lhe
marLlal law" Lhlnklng of Lhe 1971 ConsLlLuLlonal ConvenLlon ln effecL aL Lhe Llme
of lLs approval was resldenL Marcos' LeLLer of lnsLrucLlon no 2 daLed SepLember
22 1972 lnsLrucLlng Lhe SecreLary of naLlonal uefense Lo Lake over tbe
moooqemeot coottol ooJ opetotloo of tbe Moollo lecttlc compooy tbe lblllpploe
looq ulstooce 1elepbooe compooy tbe Notloool wotetwotks ooJ 5ewetoqe
Aotbotlty tbe lblllpploe Notloool kollwoys tbe lblllpploe Alt lloes Alt Moollo (ooJ)
llllploos Otleot Altwoys fot tbe soccessfol ptosecotloo by tbe Covetomeot of lts
effott to cootolo solve ooJ eoJ tbe pteseot ootloool emetqeocy"
eLlLloners parLlcularly Lhe members of Lhe Pouse of 8epresenLaLlves clalm
LhaL resldenL Arroyo's lncluslon of SecLlon 17 ArLlcle xll ln 1017 ls an
encroachmenL on Lhe leglslaLure's emergency powers
1hls ls an area LhaL needs dellneaLlon
A dlsLlncLlon musL be drawn beLween Lhe resldenL's auLhorlLy Lo dec|are a
sLaLe of naLlonal emergency" and Lo exerc|se emergency powers 1o Lhe flrsL
as elucldaLed by Lhe CourL SecLlon 18 ArLlcle vll granLs Lhe resldenL such power
hence no leglLlmaLe consLlLuLlonal ob[ecLlon can be ralsed 8uL Lo Lhe second
manlfold consLlLuLlonal lssues arlse
SecLlon 23 ArLlcle vl of Lhe ConsLlLuLlon reads
SLC 23 %1) 1he Congress by a voLe of LwoLhlrds of boLh Pouses ln [olnL sesslon
assembled voLlng separaLely shall have Lhe so|e poer to dec|are the ex|stence of
a state of ar
%2) ln Llmes of war or other nat|ona| emergency Lhe Congress may by law
auLhorlze Lhe resldenL for a llmlLed perlod and sub[ecL Lo such resLrlcLlons as lL
may prescrlbe Lo exerclse powers necessary and proper Lo carry ouL a declared
naLlonal pollcy unless sooner wlLhdrawn by resoluLlon of Lhe Congress such
powers shall cease upon Lhe nexL ad[ournmenL Lhereof
lL may be polnLed ouL LhaL Lhe second paragraph of Lhe above provlslon refers
noL only Lo war buL also Lo other nat|ona| emergency" lf Lhe lnLenLlon of Lhe
lramers of our ConsLlLuLlon was Lo wlLhhold from Lhe resldenL Lhe auLhorlLy Lo
declare a sLaLe of naLlonal emergency" pursuanL Lo SecLlon 18 ArLlcle vll (calllng
62

ouL power) and granL lL Lo Congress (llke Lhe declaraLlon of Lhe exlsLence of a sLaLe
of war) Lhen Lhe lramers could have provlded so Clearly Lhey dld noL lnLend LhaL
Congress should flrsL auLhorlze Lhe resldenL before he can declare a sLaLe of
naLlonal emergency" 1he loglcal concluslon Lhen ls LhaL resldenL Arroyo could
valldly declare Lhe exlsLence of a sLaLe of naLlonal emergency even ln Lhe absence
of a Congresslonal enacLmenL

8uL Lhe exerc|se of emergency powers such as Lhe Laklng over of prlvaLely owned
publlc uLlllLy or buslness affecLed wlLh publlc lnLeresL ls a
63

dlfferenL maLLer 1hls requlres a delegaLlon from Congress
CourLs have ofLen sald LhaL consLlLuLlonal provlslons ln potl motetlo are Lo be
consLrued LogeLher CLherwlse sLaLed dlfferenL clauses secLlons and provlslons of
a consLlLuLlon whlch relaLe Lo Lhe same sub[ecL maLLer wlll be consLrued LogeLher
and consldered ln Lhe llghL of each oLher Conslderlng LhaL SecLlon 17 of ArLlcle xll
and SecLlon 23 of ArLlcle vl prevlously quoLed relaLe Lo naLlonal emergencles Lhey
musL be read LogeLher Lo deLermlne Lhe llmlLaLlon of Lhe exerclse of emergency
powers
Genera||y Congress |s the repos|tory of emergency poers 1hls ls evldenL ln Lhe
Lenor of SecLlon 23 (2) ArLlcle vl auLhorlzlng lL Lo delegaLe such powers Lo Lhe
resldenL Certa|n|y a body cannot de|egate a poer not reposed upon |t
Powever knowlng LhaL durlng grave emergencles lL may noL be posslble or
pracLlcable for Congress Lo meeL and exerclse lLs powers Lhe lramers of our
ConsLlLuLlon deemed lL wlse Lo allow Congress Lo granL emergency powers Lo Lhe
resldenL sub[ecL Lo cerLaln condlLlons Lhus
%1) 1here musL be a ar or other emergency
%2) 1he delegaLlon musL be for a ||m|ted per|od on|y

%3) 1he delegaLlon musL be sub[ect to such restr|ct|ons as the Congress may
prescr|be
%4) 1he emergency powers musL be exerclsed Lo carry out a nat|ona| po||cy
declared by Congress
SecLlon 17 ArLlcle xll musL be undersLood as an aspecL of Lhe emergency
powers clause 1he Laklng over of prlvaLe buslness affecLed wlLh publlc lnLeresL ls
[usL anoLher faceL of Lhe emergency powers generally reposed upon Congress
1hus when SecLlon 17 sLaLes LhaL Lhe the State may dur|ng the emergency and
under reasonab|e terms prescr|bed by |t temporar||y take over or d|rect the
operat|on of any pr|vate|y oned pub||c ut|||ty or bus|ness affected |th pub||c
|nterest" lL refers Lo Congress noL Lhe resldenL now wheLher or noL Lhe
resldenL may exerclse such power ls dependenL on wheLher Congress may
delegaLe lL Lo hlm pursuanL Lo a law prescrlblng Lhe reasonable Lerms Lhereof
oooqstowo 5beet 1obe co et ol v 5owyet held
lL ls clear LhaL lf Lhe resldenL had auLhorlLy Lo lssue Lhe order he dld lL musL be
found ln some provlslon of Lhe ConsLlLuLlon And lL ls noL clalmed LhaL express
consLlLuLlonal language granLs Lhls power Lo Lhe resldenL 1he conLenLlon ls LhaL
presldenLlal power should be lmplled from Lhe aggregaLe of hls powers under Lhe
ConsLlLuLlon arLlcular rellance ls placed on provlslons ln ArLlcle ll whlch say LhaL
1he execuLlve ower shall be vesLed ln a resldenL " LhaL he shall Lake Care
LhaL Lhe Laws be falLhfully execuLed" and LhaL he shall be CommanderlnChlef of
Lhe Army and navy of Lhe unlLed SLaLes
1he order cannoL properly be susLalned as an exerclse of Lhe resldenL's mlllLary
power as CommanderlnChlef of Lhe Armed lorces 1he CovernmenL aLLempLs Lo
do so by clLlng a number of cases upholdlng broad powers ln mlllLary commanders
engaged ln dayLoday flghLlng ln a LheaLer of war Such cases need noL concern us
here Lven though "theater of ar" be an expand|ng concept e cannot |th
fa|thfu|ness to our const|tut|ona| system ho|d that the Commander|nCh|ef of the
Armed Iorces has the u|t|mate poer as such to take possess|on of pr|vate
property |n order to keep |abor d|sputes from stopp|ng product|on 1h|s |s a [ob
for the nat|on's |amakers not for |ts m|||tary author|t|es
Nor can the se|zure order be susta|ned because of the severa| const|tut|ona|
prov|s|ons that grant execut|ve poer to the 9res|dent In the frameork of our
Const|tut|on the 9res|dent's poer to see that the |as are fa|thfu||y executed
refutes the |dea that he |s to be a |amaker 1he Const|tut|on ||m|ts h|s funct|ons
|n the |amak|ng process to the recommend|ng of |as he th|nks |se and the
veto|ng of |as he th|nks bad And the Const|tut|on |s ne|ther s||ent nor equ|voca|
about ho sha|| make |as h|ch the 9res|dent |s to execute 1he f|rst sect|on of
the f|rst art|c|e says that "A|| |eg|s|at|ve 9oers here|n granted sha|| be vested |n a
Congress of the Un|ted States "
eLlLloner cocboOllvotes et ol conLends LhaL Lhe Lerm emergency" under SecLlon
17 ArLlcle xll refers Lo tsunam|" typhoon" hurr|cane" and s|m||ar
occurrences" 1hls ls a llmlLed vlew of emergency"
Lmergency as a generlc Lerm connoLes Lhe exlsLence of condlLlons suddenly
lnLenslfylng Lhe degree of exlsLlng danger Lo llfe or wellbelng beyond LhaL whlch ls
accepLed as normal lmpllclL ln Lhls deflnlLlons are Lhe elemenLs of lnLenslLy
varleLy and percepLlon Lmergencles as percelved by leglslaLure or execuLlve ln
Lhe unlLed SaLes slnce 1933 have been occasloned by a wlde range of slLuaLlons
classlflable under Lhree (3) prlnclpal heads a) econom|c b) natura| d|saster and c)
nat|ona| secur|ty
Lmergency" as conLemplaLed ln our ConsLlLuLlon ls of Lhe same breadLh lL may
lnclude rebelllon economlc crlsls pesLllence or epldemlc Lyphoon flood or oLher
slmllar caLasLrophe of naLlonwlde proporLlons or effecL 1hls ls evldenL ln Lhe
8ecords of Lhe ConsLlLuLlonal Commlsslon Lhus
M8 CASCCn ?es WhaL ls Lhe CommlLLee's deflnlLlon of naLlonal emergency"
whlch appears ln SecLlon 13 page 3? lL reads
When Lhe common good so requlres Lhe SLaLe may Lemporarlly Lake over or dlrecL
Lhe operaLlon of any prlvaLely owned publlc uLlllLy or buslness affecLed wlLh publlc
lnLeresL
M8 vlLLLCAS WhaL l mean ls LhreaL from externa| aggress|on for example
ca|am|t|es or natura| d|sasters
M8 CASCCn 1here ls a quesLlon by Commlssloner de los 8eyes WhaL abouL
sLrlkes and rloLs?
M8 vlLLLCAS SLrlkes no Lhose would noL be covered by Lhe Lerm naLlonal
emergency"
64

M8 8LnCZCn unless Lhey are of such proporLlons such LhaL Lhey would paralyze
governmenL servlce
x x x x x x
M8 1lnCSCn May l ask Lhe commlLLee lf naLlonal emergency" refers Lo m|||tary
nat|ona| emergency or could Lhls be econom|c emergency?"
M8 vlLLLCAS ?es lL could refer Lo both m|||tary or econom|c d|s|ocat|ons
M8 1lnCSCn 1hank you very much
lL may be argued LhaL when Lhere ls naLlonal emergency Congress may noL be
able Lo convene and Lherefore unable Lo delegaLe Lo Lhe resldenL Lhe power Lo
Lake over prlvaLelyowned publlc uLlllLy or buslness affecLed wlLh publlc lnLeresL
ln Atooeto v uloqlosoo Lhls CourL emphaslzed LhaL leglslaLlve power Lhrough
whlch exLraordlnary measures are exerclsed remalns ln Congress even ln Llmes of
crlsls
x x x
AfLer all Lhe crlLlclsms LhaL have been made agalnsL Lhe efflclency of Lhe
sysLem of Lhe separaLlon of powers Lhe facL remalns LhaL Lhe ConsLlLuLlon has seL
up Lhls form of governmenL wlLh all lLs defecLs and shorLcomlngs ln preference Lo
Lhe commlngllng of powers ln one man or group of men 1he llllplno people by
adopLlng parllamenLary governmenL have glven noLlce LhaL Lhey share Lhe falLh of
oLher democracylovlng peoples ln Lhls sysLem wlLh all lLs faulLs as Lhe ldeal 1he
polnL ls under Lhls framework of governmenL leglslaLlon ls preserved for Congress
all Lhe Llme noL excepLlng perlods of crlsls no maLLer how serlous never ln Lhe
hlsLory of Lhe unlLed SLaLes Lhe baslc feaLures of whose ConsLlLuLlon have been
copled ln ours have speclflc funcLlons of Lhe leglslaLlve branch of enacLlng laws
been surrendered Lo anoLher deparLmenL unless we regard as leglslaLlng Lhe
carrylng ouL of a leglslaLlve pollcy accordlng Lo prescrlbed sLandards no noL even
when LhaL 8epubllc was flghLlng a LoLal war or when lL was engaged ln a llfeand
deaLh sLruggle Lo preserve Lhe unlon 1he LruLh ls LhaL under our concepL of
consLlLuLlonal governmenL ln Llmes of exLreme perlls more Lhan ln normal
clrcumsLances 'Lhe varlous branches execuLlve leglslaLlve and [udlclal' glven Lhe
ablllLy Lo acL are called upon 'Lo perform Lhe duLles and dlscharge Lhe
responslblllLles commlLLed Lo Lhem respecLlvely"
lollowlng our lnLerpreLaLlon of SecLlon 17 ArLlcle xll lnvoked by resldenL Arroyo
ln lssulng 1017 Lhls CourL rules LhaL such roclamaLlon does noL auLhorlze her
durlng Lhe emergency Lo Lemporarlly Lake over or dlrecL Lhe operaLlon of any
prlvaLely owned publlc uLlllLy or buslness affecLed wlLh publlc lnLeresL wlLhouL
auLhorlLy from Congress
LeL lL be emphaslzed LhaL whlle Lhe resldenL alone can declare a sLaLe of naLlonal
emergency however wlLhouL leglslaLlon he has no power Lo Lake over prlvaLely
owned publlc uLlllLy or buslness affecLed wlLh publlc lnLeresL 1he resldenL
cannoL declde wheLher excepLlonal clrcumsLances exlsL warranLlng Lhe Lake over
of prlvaLelyowned publlc uLlllLy or buslness affecLed wlLh publlc lnLeresL nor
can he deLermlne when such excepLlonal clrcumsLances have ceased Llkewlse
|thout |eg|s|at|on Lhe resldenL has no power Lo polnL ouL Lhe Lypes of buslnesses
affecLed wlLh publlc lnLeresL LhaL should be Laken over ln shorL Lhe resldenL has
no absoluLe auLhorlLy Lo exerclse all Lhe powers of Lhe SLaLe under SecLlon 17
ArLlcle vll ln Lhe absence of an emergency powers acL passed by Congress
c "AS A99LILD CALLLNGL"
Cne of Lhe mlsforLunes of an emergency parLlcularly LhaL whlch perLalns Lo
securlLy ls LhaL mlllLary necesslLy and Lhe guaranLeed rlghLs of Lhe lndlvldual are
ofLen noL compaLlble Cur hlsLory reveals LhaL ln Lhe cruclble of confllcL many
rlghLs are curLalled and Lrampled upon Pere Lhe r|ght aga|nst unreasonab|e
search and se|zure the r|ght aga|nst arrant|ess arrest and the freedom of
speech of express|on of the press and of assemb|y under Lhe 8lll of 8lghLs
suffered Lhe greaLesL blow
Cf Lhe seven (7) peLlLlons Lhree (3) lndlcaLe dlrecL ln[ury"
ln Gk No 171396 peLlLloners uavld and Llamas alleged LhaL on lebruary 24
2006 Lhey were arresLed wlLhouL warranLs on Lhelr way Lo LuSA Lo celebraLe Lhe
20
Lh
Annlversary of leople lowet l 1he arresLlng offlcers clLed 1017 as basls of
Lhe arresL
ln Gk No 171409 peLlLloners CachoCllvares and 1tlbooe ubllshlng Co lnc
clalmed LhaL on lebruary 23 2006 Lhe CluC operaLlves ralded and ransacked
wlLhouL warranL" Lhelr offlce 1hree pollcemen were asslgned Lo guard Lhelr offlce
as a posslble source of desLablllzaLlon" Agaln Lhe basls was 1017
And ln Gk No 171483 peLlLloners kMu and nAlLukMu et ol alleged LhaL Lhelr
members were Lurned away and dlspersed" when Lhey wenL Lo LuSA and laLer Lo
Ayala Avenue Lo celebraLe Lhe 20
Lh
Annlversary of leople lowet l

A perusal of Lhe dlrecL ln[urles" allegedly suffered by Lhe sald peLlLloners
shows LhaL Lhey resulLed from Lhe |mp|ementat|on pursuanL Lo CC no 3 of
1017
coo tbls coott oJjoJqe os oocoostltotloool ll 1017 ooJ CO No 5 oo tbe bosls of
tbese llleqol octs? ln general Joes tbe llleqol lmplemeototloo of o low teoJet lt
oocoostltotloool?

SeLLled ls Lhe rule LhaL courLs are noL aL llberLy Lo declare sLaLuLes lnvalld a|though
they may be abused and m|sabused and may afford an opportun|ty for abuse |n
the manner of app||cat|on 1he valldlLy of a sLaLuLe or ordlnance ls Lo be
deLermlned from lLs general purpose and lLs efflclency Lo accompllsh Lhe end
deslred not from |ts effects |n a part|cu|ar case 1017 ls merely an lnvocaLlon of
Lhe resldenL's calllngouL power lLs general purpose ls Lo command Lhe Al Lo
suppress all forms of lawless vlolence lnvaslon or rebelllon lL had accompllshed
Lhe end deslred whlch prompLed resldenL Arroyo Lo lssue 1021 8uL Lhere ls
63

noLhlng ln 1017 allowlng Lhe pollce expressly or lmplledly Lo conducL lllegal
arresL search or vlolaLe Lhe clLlzens' consLlLuLlonal rlghLs
now may Lhls CourL ad[udge a law or ordlnance unconsLlLuLlonal on Lhe ground
LhaL lLs lmplemenLor commlLLed lllegal acLs? 1he answer ls no 1he crlLerlon by
whlch Lhe valldlLy of Lhe sLaLuLe or ordlnance ls Lo be measured ls Lhe essenLlal
basls for Lhe exerclse of power and not a mere |nc|denta| resu|t ar|s|ng from |ts
exert|on 1hls ls loglcal !usL lmaglne Lhe absurdlLy of slLuaLlons when laws maybe
declared unconsLlLuLlonal [usL because Lhe offlcers lmplemenLlng Lhem have acLed
arblLrarlly lf Lhls were so [udglng from Lhe blunders commlLLed by pollcemen ln
Lhe cases passed upon by Lhe CourL ma[orlLy of Lhe provlslons of Lhe 8evlsed enal
Code would have been declared unconsLlLuLlonal a long Llme ago
resldenL Arroyo lssued CC no 3 Lo carry lnLo effecL Lhe provlslons of 1017
Ceneral orders are acLs and commands of Lhe resldenL ln hls capaclLy as
CommanderlnChlef of Lhe Armed lorces of Lhe hlllpplnes" 1hey are lnLernal
rules lssued by Lhe execuLlve offlcer Lo hls subordlnaLes preclsely for Lhe proper and
eff|c|ent adm|n|strat|on of |a Such rules and regulaLlons creaLe no relaLlon
excepL beLween Lhe offlclal who lssues Lhem and Lhe offlclal who recelves Lhem
1hey are based on and are Lhe producL of a relaLlonshlp ln whlch power ls Lhelr
source and obedlence Lhelr ob[ecL lor Lhese reasons one requlremenL for Lhese
rules Lo be valld ls LhaL Lhey musL be reasonab|e not arb|trary or capr|c|ous
CC no 3 mandaLes Lhe Al and Lhe n Lo lmmedlaLely carry ouL Lhe necessary
and appropr|ate act|ons and measures to suppress and prevent acts of terror|sm
and |a|ess vlolence"
unllke Lhe Lerm lawless vlolence" whlch ls unarguably exLanL ln our sLaLuLes and
Lhe ConsLlLuLlon and whlch ls lnvarlably assoclaLed wlLh lnvaslon lnsurrecLlon or
rebelllon" Lhe phrase acLs of Lerrorlsm" ls sLlll an amorphous and vague concepL
Congress has yeL Lo enacL a law deflnlng and punlshlng acLs of Lerrorlsm
ln facL Lhls deflnlLlonal predlcamenL" or Lhe absence of an agreed deflnlLlon of
Lerrorlsm" confronLs noL only our counLry buL Lhe lnLernaLlonal
66

communlLy as well 1he followlng observaLlons are qulLe apropos
ln Lhe acLual unlpolar conLexL of lnLernaLlonal relaLlons Lhe flghL agalnsL
Lerrorlsm" has become one of Lhe baslc slogans when lL comes Lo Lhe [usLlflcaLlon of
Lhe use of force agalnsL cerLaln sLaLes and agalnsL groups operaLlng lnLernaLlonally
LlsLs of sLaLes sponsorlng Lerrorlsm" and of LerrorlsL organlzaLlons are seL up and
consLanLly belng updaLed accordlng Lo crlLerla LhaL are noL always known Lo Lhe
publlc buL are clearly deLermlned by sLraLeglc lnLeresLs
1he baslc problem underlylng all Lhese mlllLary acLlons or LhreaLs of Lhe use of
force as Lhe mosL recenL by Lhe unlLed SLaLes agalnsL lraq conslsLs ln Lhe absence
of an agreed deflnlLlon of Lerrorlsm
8emarkable confuslon perslsLs ln regard Lo Lhe legal caLegorlzaLlon of acLs of
vlolence elLher by sLaLes by armed groups such as llberaLlon movemenLs or by
lndlvlduals
1he dllemma can by summarlzed ln Lhe saylng Cne counLry's LerrorlsL ls anoLher
counLry's freedom flghLer" 1he apparenL conLradlcLlon or lack of conslsLency ln Lhe
use of Lhe Lerm Lerrorlsm" may furLher be demonsLraLed by Lhe hlsLorlcal facL LhaL
leaders of naLlonal llberaLlon movemenLs such as nelson Mandela ln SouLh Afrlca
Pablb 8ourgoulba ln 1unlsla or Ahmed 8en 8ella ln Algerla Lo menLlon only a few
were orlglnally labeled as LerrorlsLs by Lhose who conLrolled Lhe LerrlLory aL Lhe
Llme buL laLer became lnLernaLlonally respecLed sLaLesmen
WhaL Lhen ls Lhe deflnlng crlLerlon for LerrorlsL acLs Lhe Jlffeteotlo speclflco
dlsLlngulshlng Lhose acLs from evenLually leglLlmaLe acLs of naLlonal reslsLance or
selfdefense?
Slnce Lhe Llmes of Lhe Cold War Lhe unlLed naLlons CrganlzaLlon has been Lrylng ln
valn Lo reach a consensus on Lhe baslc lssue of deflnlLlon 1he organlzaLlon has
lnLenslfled lLs efforLs recenLly buL has been unable Lo brldge Lhe gap beLween
Lhose who assoclaLe Lerrorlsm" wlLh any vlolenL acL by nonsLaLe groups agalnsL
clvlllans sLaLe funcLlonarles or lnfrasLrucLure or mlllLary lnsLallaLlons and Lhose
who belleve ln Lhe concepL of Lhe leglLlmaLe use of force when reslsLance agalnsL
forelgn occupaLlon or agalnsL sysLemaLlc oppresslon of eLhnlc and/or rellglous
groups wlLhln a sLaLe ls concerned
1he dllemma faclng Lhe lnLernaLlonal communlLy can besL be lllusLraLed by
reference Lo Lhe conLradlcLlng caLegorlzaLlon of organlzaLlons and movemenLs such
as alesLlne LlberaLlon CrganlzaLlon (LC) whlch ls a LerrorlsL group for lsrael and
a llberaLlon movemenL for Arabs and Musllms Lhe kashmlrl reslsLance groups
who are LerrorlsLs ln Lhe percepLlon of lndla llberaLlon flghLers ln LhaL of aklsLan
Lhe earller ConLras ln nlcaragua freedom flghLers for Lhe unlLed SLaLes LerrorlsLs
for Lhe SoclallsL camp or mosL drasLlcally Lhe Afghanl Mu[ahedeen (laLer Lo
become Lhe 1allban movemenL) durlng Lhe Cold War perlod Lhey were a group of
freedom flghLers for Lhe WesL nurLured by Lhe unlLed SLaLes and a LerrorlsL gang
for Lhe SovleL unlon Cne could go on and on ln enumeraLlng examples of
confllcLlng caLegorlzaLlons LhaL cannoL be reconclled ln any way because of
opposlng pollLlcal lnLeresLs LhaL are aL Lhe rooLs of Lhose percepLlons
Pow Lhen can Lhose conLradlcLlng deflnlLlons and confllcLlng percepLlons and
evaluaLlons of one and Lhe same group and lLs acLlons be explalned? ln our
analysls Lhe baslc reason for Lhese sLrlklng lnconslsLencles lles ln Lhe dlvergenL
lnLeresL of sLaLes uependlng on wheLher a sLaLe ls ln Lhe poslLlon of an occupylng
power or ln LhaL of a rlval or adversary of an occupylng power ln a glven LerrlLory
Lhe deflnlLlon of Lerrorlsm wlll flucLuaLe" accordlngly A sLaLe may evenLually see
lLself as proLecLor of Lhe rlghLs of a cerLaln eLhnlc group ouLslde lLs LerrlLory and wlll
Lherefore speak of a llberaLlon sLruggle" noL of Lerrorlsm" when acLs of vlolence
by Lhls group are concerned and vlceversa
1he unlLed naLlons CrganlzaLlon has been unable Lo reach a declslon on Lhe
deflnlLlon of Lerrorlsm exacLly because of Lhese confllcLlng lnLeresLs of soverelgn
sLaLes LhaL deLermlne ln each and every lnsLance how a parLlcular armed movemenL
(le a nonsLaLe acLor) ls labeled ln regard Lo Lhe LerrorlsLsfreedom flghLer
dlchoLomy A pollcy of double sLandards" on Lhls vlLal lssue of lnLernaLlonal affalrs
has been Lhe unavoldable consequence
1hls deflnlLlonal predlcamenL" of an organlzaLlon conslsLlng of soverelgn sLaLes
and noL of peoples ln splLe of Lhe emphasls ln Lhe reamble Lo Lhe unlLed naLlons
CharLer! has become even more serlous ln Lhe presenL global power consLellaLlon
one superpower exerclses Lhe declslve role ln Lhe SecurlLy Councll former greaL
powers of Lhe Cold War era as well as medlum powers are lncreaslngly belng
marglnallzed and Lhe problem has become even more acuLe slnce Lhe LerrorlsL
aLLacks of 11 SepLember 2001 l Lhe unlLed SLaLes
1he absence of a law deflnlng acLs of Lerrorlsm" may resulL ln abuse and
oppresslon on Lhe parL of Lhe pollce or mlllLary An lllusLraLlon ls when a group of
persons are merely engaged ln a drlnklng spree ?eL Lhe mlllLary or Lhe pollce may
conslder Lhe acL as an acL of Lerrorlsm and lmmedlaLely arresL Lhem pursuanL Lo
CC no 3 Cbvlously Lhls ls abuse and oppresslon on Lhelr parL lL musL be
remembered LhaL an acL can only be consldered a crlme lf Lhere ls a law deflnlng
Lhe same as such and lmposlng Lhe correspondlng penalLy Lhereon
So far Lhe word Lerrorlsm" appears only once ln our crlmlnal laws le ln u no
1833 daLed !anuary 16 1981 enacLed by resldenL Marcos durlng Lhe MarLlal Law
reglme 1hls decree ls enLlLled Codlfylng 1he varlous Laws on AnLlSubverslon and
lncreaslng 1he enalLles for Membershlp ln Subverslve CrganlzaLlons" 1he word
Lerrorlsm" ls menLloned ln Lhe followlng provlslon 1haL one who consplres wlLh
any oLher person for Lhe purpose of overLhrowlng Lhe CovernmenL of Lhe
hlllpplnes x x x by force vlolence terror|sm x x x shall be punlshed by teclosloo
tempotol x x x"
u no 1833 was repealed by LC no 167 (whlch ouLlaws Lhe CommunlsL arLy of
Lhe hlllpplnes) enacLed by resldenL Corazon Aqulno on May 3 1983 1hese Lwo
(2) laws however do noL deflne acLs of Lerrorlsm" Slnce Lhere ls no law deflnlng
67

acLs of Lerrorlsm" lL ls resldenL Arroyo alone under CC no 3 who has Lhe
dlscreLlon Lo deLermlne whaL acLs consLlLuLe Lerrorlsm Per [udgmenL on Lhls
aspecL ls absoluLe wlLhouL resLrlcLlons ConsequenLly Lhere can be lndlscrlmlnaLe
arresL wlLhouL warranLs breaklng lnLo offlces and resldences Laklng over Lhe medla
enLerprlses prohlblLlon and dlspersal of all assemblles and gaLherlngs unfrlendly Lo
Lhe admlnlsLraLlon All Lhese can be effecLed ln Lhe name of CC no 3 1hese acLs
go far beyond Lhe calllngouL power of Lhe resldenL CerLalnly Lhey vlolaLe Lhe
due process clause of Lhe ConsLlLuLlon 1hus Lhls CourL declares LhaL Lhe acLs of
Lerrorlsm" porLlon of CC no 3 ls unconsLlLuLlonal
SlgnlflcanLly Lhere ls noLhlng ln CC no 3 auLhorlzlng Lhe mlllLary or pollce Lo
commlL acLs beyond whaL are necessary and appropr|ate to suppress and prevent
|a|ess v|o|ence Lhe llmlLaLlon of Lhelr auLhorlLy ln pursulng Lhe Crder CLherwlse
such acLs are consldered lllegal
We flrsL examlne Gk No 171396 (uovlJ et ol)
1he ConsLlLuLlon provldes LhaL Lhe rlghL of Lhe people Lo be secured ln Lhelr
persons houses papers and effecLs agalnsL unreasonable search and selzure of
whaLever naLure and for any purpose shall be invio/ob/e and no search warranL or
arrant of arrest shall lssue excepL upon probable cause Lo be deLermlned
personally by Lhe [udge afLer examlnaLlon under oaLh or afflrmaLlon of Lhe
complalnanL and Lhe wlLnesses he may produce and parLlcularly descrlblng Lhe
place Lo be searched and Lhe persons or Lhlngs Lo be selzed" 1he plaln lmporL of
Lhe language of Lhe ConsLlLuLlon ls LhaL searches selzures and arresLs are norma||y
unreasonable unless auLhorlzed by a valldly lssued search warranL or warranL of
arresL 1hus Lhe fundamenLal proLecLlon glven by Lhls provlslon ls LhaL beLween
person and pollce musL sLand Lhe proLecLlve auLhorlLy of a maglsLraLe cloLhed wlLh
power Lo lssue or refuse Lo lssue search warranLs or warranLs of arresL

ln Lhe 8rlef AccounL submlLLed by peLlLloner uavld cerLaln facLs are
esLabllshed fltst he was arresLed wlLhouL warranL secooJ Lhe n operaLlves
arresLed hlm on Lhe basls of 1017 tbltJ he was broughL aL Camp karlngal
Cuezon ClLy where he was flngerprlnLed phoLographed and booked llke a crlmlnal
suspecL foottb he was LreaLed brusquely by pollcemen who held hls head and
Lrled Lo push hlm" lnslde an unmarked car flftb he was charged wlLh vlolaLlon of
8atas 9ambansa 8||ang No 880 and Inc|t|ng to Sed|t|on slxtb he was
deLalned for seven (7) hours and seveotb he was evenLually released for
lnsufflclency of evldence
SecLlon 3 8ule 113 of Lhe 8evlsed 8ules on Crlmlnal rocedure provldes
Sec 3 4rrest without worront when /owfu/ A peace offlcer or a prlvaLe person
may wlLhouL a warranL arresL a person
%a) When ln hls presence Lhe person Lo be arresLed has commlLLed ls acLually
commlLLlng or ls aLLempLlng Lo commlL an offense
%b) When an offense has [usL been commlLLed and he has probable cause Lo belleve
based on personal knowledge of facLs or clrcumsLances LhaL Lhe person Lo be
arresLed has commlLLed lL and
x x x
nelLher of Lhe Lwo (2) excepLlons menLloned above [usLlfles peLlLloner uavld's
warranLless arresL uurlng Lhe lnquesL for Lhe charges of lnc|t|ng to sed|t|on and
v|o|at|on of 89 880 all LhaL Lhe arresLlng offlcers could lnvoke was Lhelr
observaLlon LhaL some rallylsLs were wearlng LshlrLs wlLh Lhe lnvecLlve #Oost
Clotlo Now and Lhelr erroneous assumpLlon LhaL peLlLloner uavld was Lhe leader
of Lhe rally ConsequenLly Lhe lnquesL rosecuLor ordered hls lmmedlaLe release
on Lhe ground of lnsufflclency of evldence Pe noLed LhaL peLlLloner uavld was noL
wearlng Lhe sub[ecL LshlrL and even lf he was wearlng lL such facL ls lnsufflclenL Lo
charge hlm wlLh lnc|t|ng to sed|t|on lurLher he also sLaLed LhaL Lhere ls
lnsufflclenL evldence for Lhe charge of v|o|at|on of 89 880 as lL was noL even known
wheLher peLlLloner uavld was Lhe leader of Lhe rally
8uL whaL made lL doubly worse for peLlLloners uavld et ol ls LhaL noL only was Lhelr
rlghL agalnsL warranLless arresL vlolaLed buL also Lhelr rlghL Lo peaceably assemble
SecLlon 4 of ArLlcle lll guaranLees
no law shall be passed abrldglng Lhe freedom of speech of expresslon or of Lhe
press or Lhe rlghL of Lhe people peaceably Lo assemble and peLlLlon Lhe
governmenL for redress of grlevances
Assembly" means a rlghL on Lhe parL of Lhe clLlzens Lo meeL peaceably for
consulLaLlon ln respecL Lo publlc affalrs lL ls a necessary consequence of our
republlcan lnsLlLuLlon and complemenLs Lhe rlghL of speech As ln Lhe case of
freedom of expresslon Lhls rlghL ls noL Lo be llmlLed much less denled excepL on a
showlng of a c|ear and present danger of a subsLanLlve evll LhaL Congress has a
rlghL Lo prevenL ln oLher words llke oLher rlghLs embraced ln Lhe freedom of
expresslon Lhe rlghL Lo assemble ls noL sub[ecL Lo prevlous resLralnL or censorshlp
lL may noL be condlLloned upon Lhe prlor lssuance of a permlL or auLhorlzaLlon from
Lhe governmenL auLhorlLles excepL of course lf Lhe assembly ls lnLended Lo be held
ln a publlc place a permlL for Lhe use of such place and noL for Lhe assembly lLself
may be valldly requlred
1he rlnglng LruLh here ls LhaL peLlLloner uavld et ol were arresLed whlle Lhey were
exerclslng Lhelr rlghL Lo peaceful assembly 1hey were noL commlLLlng any crlme
nelLher was Lhere a showlng of a clear and presenL danger LhaL warranLed Lhe
llmlLaLlon of LhaL rlghL As can be gleaned from clrcumsLances Lhe charges of
|nc|t|ng to sed|t|on and v|o|at|on of 89 880 were mere afLerLhoughL Lven Lhe
SollclLor Ceneral durlng Lhe oral argumenL falled Lo [usLlfy Lhe arresLlng offlcers'
conducL ln ue Iooqe v Oteqoo lL was held LhaL peaceable assembly cannoL be
made a crlme Lhus
eaceable assembly for lawful dlscusslon cannoL be made a crlme 1he holdlng of
meeLlngs for peaceable pollLlcal acLlon cannoL be proscrlbed 1hose who asslsL ln
68

Lhe conducL of such meeLlngs cannoL be branded as crlmlnals on LhaL score 1he
quesLlon lf Lhe rlghLs of free speech and peaceful assembly are noL Lo be
preserved ls noL as Lo Lhe ausplces under whlch Lhe meeLlng was held buL as Lo lLs
purpose noL as Lo Lhe relaLlons of Lhe speakers buL wheLher Lhelr uLLerances
Lranscend Lhe bounds of Lhe freedom of speech whlch Lhe ConsLlLuLlon proLecLs lf
Lhe persons assembllng have commlLLed crlmes elsewhere lf Lhey have formed or
are engaged ln a consplracy agalnsL Lhe publlc peace and order Lhey may be
prosecuLed for Lhelr consplracy or oLher vlolaLlons of valld laws 8ut |t |s a d|fferent
matter hen the State |nstead of prosecut|ng them for such offenses se|zes upon
mere part|c|pat|on |n a peaceab|e assemb|y and a |afu| pub||c d|scuss|on as the
bas|s for a cr|m|na| charge
Cn Lhe basls of Lhe above prlnclples Lhe CourL llkewlse conslders Lhe dlspersal and
arresL of Lhe members of kMu et ol (C8 no 171483) unwarranLed ApparenLly
Lhelr dlspersal was done merely on Lhe basls of Malacanang's dlrecLlve cancellng all
permlLs prevlously lssued by local governmenL unlLs 1hls ls arblLrary 1he
wholesale cancellaLlon of all permlLs Lo rally ls a blaLanL dlsregard of Lhe prlnclple
LhaL freedom of assemb|y |s not to be ||m|ted much |ess den|ed except on a
sho|ng of a c/eor ond present donqer of a substant|ve ev|| that the State has a
r|ght to prevent" 1olerance ls Lhe rule and llmlLaLlon ls Lhe excepLlon Cnly upon a
showlng LhaL an assembly presenLs a clear and presenL danger LhaL Lhe SLaLe may
deny Lhe clLlzens' rlghL Lo exerclse lL lndeed respondenLs falled Lo show or
convlnce Lhe CourL LhaL Lhe rallylsLs commlLLed acLs amounLlng Lo lawless vlolence
lnvaslon or rebelllon WlLh Lhe blankeL revocaLlon of permlLs Lhe dlsLlncLlon
beLween proLecLed and unproLecLed assemblles was ellmlnaLed
Moreover under 8 880 Lhe auLhorlLy Lo regulaLe assemblles and rallles ls lodged
wlLh Lhe local governmenL unlLs 1hey have Lhe power Lo lssue permlLs and Lo
revoke such permlLs after due not|ce and hear|ng on Lhe deLermlnaLlon of Lhe
presence of clear and presenL danger Pere peLlLloners were noL even noLlfled and
heard on Lhe revocaLlon of Lhelr permlLs 1he flrsL Llme Lhey learned of lL was aL Lhe
Llme of Lhe dlspersal Such absence of noLlce ls a faLal defecL When a person's
rlghL ls resLrlcLed by governmenL acLlon lL behooves a democraLlc governmenL Lo
see Lo lL LhaL Lhe resLrlcLlon ls falr reasonable and accordlng Lo procedure
Gk No 171409 (CachoCllvares et ol) presenLs anoLher faceL of freedom of
speech le Lhe freedom of Lhe press eLlLloners' narraLlon of facLs whlch Lhe
SollclLor Ceneral falled Lo refuLe esLabllshed Lhe followlng fltst Lhe uolly 1tlbooes
offlces were searched wlLhouL warranL secooJ Lhe pollce operaLlves selzed several
maLerlals for publlcaLlon tbltJ Lhe search was conducLed aL abouL 100 o' clock ln
Lhe mornlng of lebruary 23 2006 foottb Lhe search was conducLed ln Lhe absence
of any offlclal of Lhe uolly 1tlbooe excepL Lhe securlLy guard of Lhe bulldlng and
flftb pollcemen sLaLloned Lhemselves aL Lhe vlclnlLy of Lhe uolly 1tlbooe offlces
1hereafLer a wave of warnlng came from governmenL offlclals resldenLlal
Chlef of SLaff Mlchael uefensor was quoLed as saylng LhaL such rald was "meant to
sho a 'strong presence' to te|| med|a out|ets not to conn|ve or do anyth|ng that
ou|d he|p the rebe|s |n br|ng|ng don th|s government" ulrecLor Ceneral
Lomlbao furLher sLaLed LhaL "|f they do not fo||o the standards and the
standards are |f they ou|d contr|bute to |nstab|||ty |n the government or |f they
do not subscr|be to hat |s |n Genera| Crder No S and 9roc No 1017 e |||
recommend a 'takeover'" naLlonal 1elecommunlcaLlons Commlssloner 8onald
Solls urged Lelevlslon and radlo neLworks Lo #cooperote wlLh Lhe governmenL for
Lhe duraLlon of Lhe sLaLe of naLlonal emergency e arned that h|s agency |||
not hes|tate to recommend the c|osure of any broadcast outf|t that v|o|ates ru|es
set out for med|a coverage dur|ng t|mes hen the nat|ona| secur|ty |s threatened
1he search ls lllegal 8ule 126 of 1he 8evlsed 8ules on Crlmlnal rocedure lays
down Lhe sLeps ln Lhe conducL of search and selzure Sect|on 4 requlres LhaL a
search arrant be lssued upon probable cause ln connecLlon wlLh one speclflc
offence Lo be deLermlned personally by Lhe [udge afLer examlnaLlon under oaLh or
afflrmaLlon of Lhe complalnanL and Lhe wlLnesses he may produce Sect|on 8
mandaLes LhaL Lhe search of a house room or any oLher premlse be made |n the
presence of the |afu| occupant Lhereof or any member of hls famlly or ln Lhe
absence of Lhe laLLer ln Lhe presence of Lwo (2) wlLnesses of sufflclenL age and
dlscreLlon resldlng ln Lhe same locallLy And Sect|on 9 sLaLes LhaL Lhe warranL
musL dlrecL LhaL lL be served ln Lhe dayt|me unless Lhe properLy ls on Lhe person or
ln Lhe place ordered Lo be searched ln whlch case a dlrecLlon may be lnserLed LhaL
lL be served aL any Llme of Lhe day or nlghL All Lhese rules were vlolaLed by Lhe
CluC operaLlves
noL only LhaL Lhe search vlolaLed peLlLloners' freedom of Lhe press 1he besL
gauge of a free and democraLlc socleLy resLs ln Lhe degree of freedom en[oyed by
lLs medla ln Lhe 8otqos v cblef of 5toff Lhls CourL held LhaL
As hereLofore sLaLed Lhe premlses searched were Lhe buslness and prlnLlng offlces
of Lhe Mettopolltoo Moll and Lhe we lotom" newspapers As a consequence of
Lhe search and selzure these prem|ses ere pad|ocked and sea|ed |th the
further resu|t that the pr|nt|ng and pub||cat|on of sa|d nespapers ere
d|scont|nued
Such c|osure |s |n the nature of prev|ous restra|nt or censorsh|p abhorrent to the
freedom of the press guaranteed under the fundamenta| |a and const|tutes a
v|rtua| den|a| of pet|t|oners freedom to express themse|ves |n pr|nt 1h|s state of
be|ng |s patent|y anathemat|c to a democrat|c frameork here a free a|ert and
even m|||tant press |s essent|a| for the po||t|ca| en||ghtenment and groth of the
c|t|zenry
Whlle admlLLedly Lhe uolly 1tlbooe was noL padlocked and sealed llke Lhe
Mettopolltoo Moll" and we lotom" newspapers ln Lhe above case yeL lL cannoL
be denled LhaL Lhe CluC operaLlves exceeded Lhelr enforcemenL duLles 1he search
and selzure of maLerlals for publlcaLlon Lhe sLaLlonlng of pollcemen ln Lhe vlclnlLy
of Lhe 1be uolly 1tlbooe offlces and Lhe arroganL warnlng of governmenL offlclals Lo
69

medla are plaln censorshlp lL ls LhaL offlclous funcLlonary of Lhe represslve
governmenL who Lells Lhe clLlzen LhaL he may speak only lf allowed Lo do so and no
more and no less Lhan whaL he ls permlLLed Lo say on paln of punlshmenL should he
be so rash as Lo dlsobey undoubLedly Lhe 1be uolly 1tlbooe was sub[ecLed Lo
Lhese arblLrary lnLruslons because of lLs anLlgovernmenL senLlmenLs 1hls CourL
cannoL LoleraLe Lhe blaLanL dlsregard of a consLlLuLlonal rlghL even lf lL lnvolves Lhe
mosL deflanL of our clLlzens lreedom Lo commenL on publlc affalrs ls essenLlal Lo
Lhe vlLallLy of a represenLaLlve democracy lL ls Lhe duLy of Lhe courLs Lo be
waLchful for Lhe consLlLuLlonal rlghLs of Lhe clLlzen and agalnsL any sLealLhy
encroachmenLs Lhereon 1he moLLo should always be obsto ptloclplls
lncldenLally durlng Lhe oral argumenLs Lhe SollclLor Ceneral admlLLed LhaL Lhe
search of Lhe 1tlbooes offlces and Lhe selzure of lLs maLerlals for publlcaLlon and
oLher papers are lllegal and LhaL Lhe same are lnadmlsslble for any purpose" Lhus
!uS1lCL CALLL!C
?ou made qulLe a mouLhful of admlsslon when you sald LhaL Lhe pollcemen
when lnspecLed Lhe 1rlbune for Lhe purpose of gaLherlng evldence and you
admlLLed LhaL Lhe pollcemen were able Lo geL Lhe cllpplngs ls LhaL noL ln admlsslon
of Lhe admlsslblllLy of Lhese cllpplngs LhaL were Laken from Lhe 1rlbune?
SCLlCl1C8 CLnL8AL 8LnlA?C
under Lhe law Lhey would seem Lo be lf Lhey were lllegally selzed l Lhlnk and
l know ?our Ponor and Lhese are lnadmlsslble for any purpose
x x x x x x x x x
S8 ASSC !uS1lCL unC
1hese have been publlshed ln Lhe pasL lssues of Lhe ually 1rlbune all you
have Lo do ls Lo geL Lhose pasL lssues So why do you have Lo go Lhere aL 1 o'clock
ln Lhe mornlng and wlLhouL any search warranL? uld Lhey become suddenly parL of
Lhe evldence of rebelllon or lnclLlng Lo sedlLlon or whaL?
SCLCLn 8LnlA?C
Well lL was Lhe pollce LhaL dld LhaL ?our Ponor noL upon my lnsLrucLlons
S8 ASSC !uS1lCL unC
Are you saylng LhaL Lhe acL of Lhe pollceman ls lllegal lL ls noL based on any
law and lL ls noL based on roclamaLlon 1017
SCLCLn 8LnlA?C
lL ls noL based on roclamaLlon 1017 ?our Ponor because Lhere ls noLhlng ln
1017 whlch says LhaL Lhe pollce could go and lnspecL and gaLher cllpplngs from ually
1rlbune or any oLher newspaper
S8 ASSC !uS1lCL unC
ls lL based on any law?
SCLCLn 8LnlA?C
As far as l know no ?our Ponor from Lhe facLs no
S8 ASSC !uS1lCL unC
So lL has no basls no legal basls whaLsoever?
SCLCLn 8LnlA?C
Maybe so ?our Ponor Maybe so LhaL ls why l sald l don'L know lf lL ls
premaLure Lo say Lhls e do not condone th|s If the peop|e ho have been
|n[ured by th|s ou|d ant to sue them they can sue and there are remed|es for
th|s
Llkewlse Lhe warranLless arresLs and selzures execuLed by Lhe pollce were
accordlng Lo Lhe SollclLor Ceneral lllegal and cannoL be condoned Lhus
CPlLl !uS1lCL AnCAnl8An
1here seems Lo be some confuslons lf noL conLradlcLlon ln your Lheory

SCLlCl1C8 CLnL8AL 8LnlA?C
l don'L know wheLher Lhls wlll clarlfy 1he acLs Lhe supposed lllegal or
unlawful acLs commlLLed on Lhe occaslon of 1017 as l sald |t cannot be condoned
?ou cannoL blame Lhe resldenL for as you sald a mlsappllcaLlon of Lhe law 1hese
are acLs of Lhe pollce offlcers LhaL ls Lhelr responslblllLy
1he ulssenLlng Cplnlon sLaLes LhaL 1017 and CC no 3 are consLlLuLlonal ln
every aspecL and should resulL ln no consLlLuLlonal or sLaLuLory breaches lf applled
accordlng Lo Lhelr leLLer"
1he CourL has passed upon Lhe consLlLuLlonallLy of Lhese lssuances lLs raLloclnaLlon
has been exhausLlvely presenLed AL Lhls polnL sufflce lL Lo relLeraLe LhaL 1017 ls
llmlLed Lo Lhe calllng ouL by Lhe resldenL of Lhe mlllLary Lo prevenL or suppress
lawless vlolence lnvaslon or rebelllon When ln lmplemenLlng lLs provlslons
pursuanL Lo CC no 3 Lhe mlllLary and Lhe pollce commlLLed acLs whlch vlolaLe Lhe
clLlzens' rlghLs under Lhe ConsLlLuLlon Lhls CourL has Lo declare such acLs
unconsLlLuLlonal and lllegal
ln Lhls connecLlon Chlef !usLlce ArLemlo v anganlban's concurrlng oplnlon
aLLached hereLo ls consldered an lnLegral parL of Lhls pooeoclo
S U M M A 1 I C N
ln sum Lhe llfLlng of 1017 Lhrough Lhe lssuance of 1021 a supervenlng evenL
would have normally rendered Lhls case mooL and academlc Powever whlle
1017 was sLlll operaLlve lllegal acLs were commlLLed allegedly ln pursuance
Lhereof 8esldes Lhere ls no guaranLee LhaL 1017 or one slmllar Lo lL may noL
agaln be lssued Already Lhere have been medla reporLs on Aprll 30 2006 LhaL
allegedly 1017 would be relmposed lf Lhe May 1 rallles" become unruly and
vlolenL" ConsequenLly Lhe LranscendenLal lssues ralsed by Lhe parLles should noL
be evaded" Lhey musL now be resolved Lo prevenL fuLure consLlLuLlonal
aberraLlon
1he CourL flnds and so holds LhaL 1017 ls consLlLuLlonal lnsofar as lL consLlLuLes a
call by Lhe resldenL for Lhe Al Lo prevenL or suppress |a|ess v|o|ence 1he
proclamaLlon ls susLalned by SecLlon 18 ArLlcle vll of Lhe ConsLlLuLlon and Lhe
relevanL [urlsprudence dlscussed earller Powever 1017's exLraneous provlslons
glvlng Lhe resldenL express or lmplled power (1) Lo lssue decrees (2) Lo dlrecL Lhe
70

Al Lo enforce obedlence Lo a|| |as even Lhose noL relaLed Lo lawless vlolence as
well as decrees promulgaLed by Lhe resldenL and (3) Lo lmpose sLandards on
medla or any form of prlor resLralnL on Lhe press are oltto vltes and
unconst|tut|ona| 1he CourL also rules LhaL under SecLlon 17 ArLlcle xll of Lhe
ConsLlLuLlon Lhe resldenL ln Lhe absence of a leglslaLlon cannoL Lake over
prlvaLelyowned publlc uLlllLy and prlvaLe buslness affecLed wlLh publlc lnLeresL
ln Lhe same veln Lhe CourL flnds CC no 3 valld lL ls an Crder lssued by Lhe
resldenL acLlng as CommanderlnChlef addressed Lo subalLerns ln Lhe Al Lo
carry ouL Lhe provlslons of 1017 SlgnlflcanLly lL also provldes a valld sLandard
LhaL Lhe mlllLary and Lhe pollce should Lake only Lhe necessary and appropr|ate
act|ons and measures to suppress and prevent acts of |a|ess v|o|ence" 8uL Lhe
words acts of terror|sm" found ln CC no 3 have noL been legally deflned and
made punlshable by Congress and should Lhus be deemed deleLed from Lhe sald
CC Whlle Lerrorlsm" has been denounced generally ln medla no law has been
enacLed Lo gulde Lhe mlllLary and evenLually Lhe courLs Lo deLermlne Lhe llmlLs of
Lhe Al's auLhorlLy ln carrylng ouL Lhls porLlon of CC no 3
Cn Lhe basls of Lhe relevanL and unconLesLed facLs narraLed earller lL ls also prlsLlne
clear LhaL (1) Lhe warranLless arresL of peLlLloners 8andolf S uavld and 8onald
Llamas (2) Lhe dlspersal of Lhe rallles and warranLless arresL of Lhe kMu and
nAlLukMu members (3) Lhe lmposlLlon of sLandards on medla or any prlor
resLralnL on Lhe press and (4) Lhe warranLless search of Lhe 1tlbooe offlces and Lhe
whlmslcal selzures of some arLlcles for publlcaLlon and oLher maLerlals are noL
auLhorlzed by Lhe ConsLlLuLlon Lhe law and [urlsprudence noL even by Lhe valld
provlslons of 1017 and CC no 3
CLher Lhan Lhls declaraLlon of lnvalldlLy Lhls CourL cannoL lmpose any clvll crlmlnal
or admlnlsLraLlve sancLlons on Lhe lndlvldual pollce offlcers concerned 1hey have
noL been lndlvldually ldenLlfled and glven Lhelr day ln courL 1he clvll complalnLs or
causes of acLlon and/or relevanL crlmlnal lnformaLlons have noL been presenLed
before Lhls CourL LlemenLary due process bars Lhls CourL from maklng any speclflc
pronouncemenL of clvll crlmlnal or admlnlsLraLlve llablllLles
lL ls e|| to remember that m|||tary poer |s a means to an end and substant|ve
c|v|| r|ghts are ends |n themse|ves o to g|ve the m|||tary the poer |t needs to
protect the kepub||c |thout unnecessar||y tramp||ng |nd|v|dua| r|ghts |s one of
the eterna| ba|anc|ng tasks of a democrat|c state uurlng emergency
governmenLal acLlon may vary ln breadLh and lnLenslLy from normal Llmes yeL Lhey
should noL be arblLrary as Lo unduly resLraln our people's llberLy
erhaps Lhe vlLal lesson LhaL we musL learn from Lhe LheorlsLs who sLudled Lhe
varlous compeLlng pollLlcal phllosophles ls LhaL lL ls posslble Lo granL governmenL
Lhe auLhorlLy Lo cope wlLh crlses wlLhouL surrenderlng Lhe Lwo vlLal prlnclples of
consLlLuLlonallsm the ma|ntenance of |ega| ||m|ts to arb|trary poer and po||t|ca|
respons|b|||ty of the government to the governed
JLkLICkL Lhe eLlLlons are parLly granLed 1he CourL rules LhaL 1017 ls
CCNS1I1U1ICNAL lnsofar as lL consLlLuLes a call by resldenL Clorla Macapagal
Arroyo on Lhe Al to prevent or suppress |a|ess v|o|ence Powever Lhe
provlslons of 1017 commandlng Lhe Al Lo enforce laws noL relaLed Lo lawless
vlolence as well as decrees promulgaLed by Lhe resldenL are declared
UNCCNS1I1U1ICNAL ln addlLlon Lhe provlslon ln 1017 declarlng naLlonal
emergency under SecLlon 17 ArLlcle vll of Lhe ConsLlLuLlon ls CCNS1I1U1ICNAL
buL such declaraLlon does noL auLhorlze Lhe resldenL Lo Lake over prlvaLelyowned
publlc uLlllLy or buslness affecLed wlLh publlc lnLeresL wlLhouL prlor leglslaLlon
CC no 3 ls CCNS1I1U1ICNAL slnce lL provldes a sLandard by whlch Lhe Al and
Lhe n should lmplemenL 1017 le whaLever ls necessary and appropr|ate
act|ons and measures to suppress and prevent acts of |a|ess v|o|ence"
Conslderlng LhaL acLs of Lerrorlsm" have noL yeL been deflned and made
punlshable by Lhe LeglslaLure such porLlon of CC no 3 ls declared
UNCCNS1I1U1ICNAL
1he warranLless arresL of 8andolf S uavld and 8onald Llamas Lhe dlspersal and
warranLless arresL of Lhe kMu and nAlLukMu members durlng Lhelr rallles ln Lhe
absence of proof LhaL Lhese peLlLloners were commlLLlng acLs consLlLuLlng lawless
vlolence lnvaslon or rebelllon and vlolaLlng 8 880 Lhe lmposlLlon of sLandards on
medla or any form of prlor resLralnL on Lhe press as well as Lhe warranLless search
of Lhe 1tlbooe offlces and whlmslcal selzure of lLs arLlcles for publlcaLlon and oLher
maLerlals are declared UNCCNS1I1U1ICNAL

1IIAM VS SI8CNGANC
Gk No L214S0 Apr|| 1S 1968
ulZCn I
Cn !uly 19 1948 barely one monLh afLer Lhe effecLlvlLy of 8epubllc AcL no 296
known as Lhe !udlclary AcL of 1948 Lhe spouses Serafln 1l[am and lellclLas
1agalog commenced Clvll Case no 8660 ln Lhe CourL of llrsL lnsLance of Cebu
agalnsL Lhe spouses Magdaleno Slbonghanoy and Lucla 8agulo Lo recover from
Lhem Lhe sum of 190800 wlLh legal lnLeresL Lhereon from Lhe daLe of Lhe flllng of
Lhe complalnL unLll Lhe whole obllgaLlon ls pald plus cosLs As prayed for ln Lhe
complalnL a wrlL of aLLachmenL was lssued by Lhe courL agalnsL defendanLs
properLles buL Lhe same was soon dlssolved upon Lhe flllng of a counLerbond by
defendanLs and Lhe Manlla SureLy and lldellLy Co lnc herelnafLer referred Lo as
Lhe SureLy on Lhe 31sL of Lhe same monLh
AfLer belng duly served wlLh summons Lhe defendanLs flled Lhelr answer ln whlch
afLer maklng some admlsslons and denlals of Lhe maLerlal avermenLs of Lhe
complalnL Lhey lnLerposed a counLerclalm 1hls counLerclalm was answered by Lhe
plalnLlffs
AfLer Lrlal upon Lhe lssues Lhus [olned Lhe CourL rendered [udgmenL ln favor of Lhe
plalnLlffs and afLer Lhe same had become flnal and execuLory upon moLlon of Lhe
71

laLLer Lhe CourL lssued a wrlL of execuLlon agalnsL Lhe defendanLs 1he wrlL havlng
been reLurned unsaLlsfled Lhe plalnLlffs moved for Lhe lssuance of a wrlL of
execuLlon agalnsL Lhe SureLys bond (8ec on Appeal pp 4649) agalnsL whlch Lhe
SureLy flled a wrlLLen opposlLlon (lJ pp 49) upon Lwo grounds namely (1) lallure
Lo prosecuLe and (2) Absence of a demand upon Lhe SureLy for Lhe paymenL of Lhe
amounL due under Lhe [udgmenL upon Lhese grounds Lhe SureLy prayed Lhe CourL
noL only Lo deny Lhe moLlon for execuLlon agalnsL lLs counLerbond buL also Lhe
followlng offltmotlve tellef Lo relleve Lhe hereln bondlng company of lLs llablllLy lf
any under Lhe bond ln quesLlon (lJ p 34) 1he CourL denled Lhls moLlon on Lhe
ground solely LhaL no prevlous demand had been made on Lhe SureLy for Lhe
saLlsfacLlon of Lhe [udgmenL 1hereafLer Lhe necessary demand was made and
upon fallure of Lhe SureLy Lo saLlsfy Lhe [udgmenL Lhe plalnLlffs flled a second
moLlon for execuLlon agalnsL Lhe counLerbond Cn Lhe daLe seL for Lhe hearlng
Lhereon Lhe CourL upon moLlon of Lhe SureLys counsel granLed Lhe laLLer a perlod
of flve days wlLhln whlch Lo answer Lhe moLlon upon lLs fallure Lo flle such answer
Lhe CourL granLed Lhe moLlon for execuLlon and Lhe correspondlng wrlL was lssued
SubsequenLly Lhe SureLy moved Lo quash Lhe wrlL on Lhe ground LhaL Lhe same was
lssued wlLhouL Lhe requlred summary hearlng provlded for ln SecLlon 17 of 8ule 39
of Lhe 8ules of CourL As Lhe CourL denled Lhe moLlon Lhe SureLy appealed Lo Lhe
CourL of Appeals from such order of denlal and from Lhe one denylng lLs moLlon for
reconslderaLlon (lJ p 97) lLs record on appeal was Lhen prlnLed as requlred by Lhe
8ules and ln due Llme lL flled lLs brlef ralslng Lhereln no oLher quesLlon buL Lhe ones
covered by Lhe followlng asslgnmenL of errors
l 1haL Lhe Ponorable CourL o poo erred ln lssulng lLs order daLed november 2
1937 by holdlng Lhe lncldenL as submlLLed for resoluLlon wlLhouL a summary
hearlng and compllance wlLh Lhe oLher mandaLory requlremenLs provlded for ln
SecLlon 17 8ule 39 of Lhe 8ules of CourL
ll 1haL Lhe Ponorable CourL o poo erred ln orderlng Lhe lssuance of execuLlon
agalnsL Lhe hereln bondlng companyappellanL
lll 1haL Lhe Ponorable CourL o poo erred ln denylng Lhe moLlon Lo quash Lhe wrlL of
execuLlon flled by Lhe hereln bondlng companyappellanL as well as lLs subsequenL
moLlon for reconslderaLlon and/or ln noL quashlng or seLLlng aslde Lhe wrlL of
execuLlon
noL one of Lhe asslgnmenL of errors lL ls obvlous ralses Lhe quesLlon of lack of
[urlsdlcLlon nelLher dlrecLly nor lndlrecLly
AlLhough Lhe appellees falled Lo flle Lhelr brlef Lhe CourL of Appeals on uecember
11 1962 declded Lhe case afflrmlng Lhe orders appealed from
Cn !anuary 8 1963 flve days afLer Lhe SureLy recelved noLlce of Lhe declslon lL
flled a moLlon asklng for exLenslon of Llme wlLhln whlch Lo flle a moLlon for
reconslderaLlon 1he CourL of Appeals granLed Lhe moLlon ln lLs resoluLlon of
!anuary 10 of Lhe same year 1wo days laLer Lhe SureLy flled a pleadlng enLlLled
MC1lCn 1C ulSMlSS alleglng subsLanLlally LhaL appellees acLlon was flled ln Lhe
CourL of llrsL lnsLance of Cebu on !uly 19 1948 for Lhe recovery of Lhe sum of
190800 only LhaL a monLh before LhaL daLe 8epubllc AcL no 296 oLherwlse
known as Lhe !udlclary AcL of 1948 had already become effecLlve SecLlon 88 of
whlch placed wlLhln Lhe orlglnal excluslve [urlsdlcLlon of lnferlor courLs all clvll
acLlons where Lhe value of Lhe sub[ecLmaLLer or Lhe amounL of Lhe demand does
noL exceed 200000 excluslve of lnLeresL and cosLs LhaL Lhe CourL of llrsL
lnsLance Lherefore had no [urlsdlcLlon Lo Lry and declde Lhe case upon Lhese
premlses Lhe SureLys moLlon prayed Lhe CourL of Appeals Lo seL aslde lLs declslon
and Lo dlsmlss Lhe case 8y resoluLlon of !anuary 16 1963 Lhe CourL of Appeals
requlred Lhe appellees Lo answer Lhe moLlon Lo dlsmlss buL Lhey falled Lo do so
Whereupon on May 20 of Lhe same year Lhe CourL resolved Lo seL aslde lLs
declslon and Lo cerLlfy Lhe case Lo us 1he perLlnenL porLlons of lLs resoluLlon read
as follows
lL would lndeed appear from Lhe record LhaL Lhe acLlon aL bar whlch ls a sulL for
collecLlon of money ln Lhe sum of exacLly 190800 excluslve of lnLeresL was
orlglnally lnsLlLuLed ln Lhe CourL of llrsL lnsLance of Cebu on !uly 19 1948 8uL
abouL a monLh prlor Lo Lhe flllng of Lhe complalnL more speclflcally on !une 17
1948 Lhe !udlclary AcL of 1948 Look effecL deprlvlng Lhe CourL of llrsL lnsLance of
orlglnal [urlsdlcLlon over cases ln whlch Lhe demand excluslve of lnLeresL ls noL
more Lhan 200000 (Secs 44c and 86b 8A no 296)
We belleve Lherefore LhaL Lhe polnL ralsed ln appellanLs moLlon ls an lmporLanL
one whlch merlLs serlous conslderaLlon As sLaLed Lhe complalnL was flled on !uly
19 1948 1hls case Lherefore has been pendlng now for almosL 13 years and
LhroughouL Lhe enLlre proceedlng appellanL never ralsed Lhe quesLlon of [urlsdlcLlon
unLll afLer recelpL of Lhls CourLs adverse declslon
1here are Lhree cases declded by Lhe Ponorable Supreme CourL whlch may be
worLhy of conslderaLlon ln connecLlon wlLh Lhls case namely 1yson 1an eL al vs
llllplnas Companla de Seguros eL al C8 no L10096 March 23 1936 lndangan
AgrlculLural Co lnc vs !ose uans eLc eL al C8 no L14391 SepLember 26
1962 and Alfredo MonLellbano eL al vs 8acolodMurcla Mllllng Co lnc C8 no
L13092 SepLember 29 1962 whereln Lhe Ponorable Supreme CourL frowned
upon Lhe undeslrable pracLlce of appellanLs submlLLlng Lhelr case for declslon and
Lhen accepLlng Lhe [udgmenL lf favorable buL aLLacklng lL for lack of [urlsdlcLlon
when adverse
Conslderlng however LhaL Lhe Supreme CourL has Lhe excluslve appellaLe
[urlsdlcLlon over all cases ln whlch Lhe [urlsdlcLlon of any lnferlor courL ls ln lssue
(See 1 ar 33 !udlclary AcL of 1948 as amended) we have no cholce buL Lo
cerLlfy as we hereby do cerLlfy Lhls case Lo Lhe Supreme CourL1owpbt1et
ACCC8ulnCL? pursuanL Lo SecLlon 31 of Lhe !udlclary AcL of 1948 as amended leL
Lhe record of Lhls case be forwarded Lo Lhe Supreme CourL
lL ls an undlspuLed facL LhaL Lhe acLlon commenced by appellees ln Lhe CourL of llrsL
lnsLance of Cebu agalnsL Lhe Slbonghanoy spouses was for Lhe recovery of Lhe sum
72

of 190800 only an amounL wlLhln Lhe orlglnal excluslve [urlsdlcLlon of lnferlor
courLs ln accordance wlLh Lhe provlslons of Lhe !udlclary AcL of 1948 whlch had
Laken effecL abouL a monLh prlor Lo Lhe daLe when Lhe acLlon was commenced
1rue also ls Lhe rule LhaL [urlsdlcLlon over Lhe sub[ecL maLLer ls conferred upon Lhe
courLs excluslvely by law and as Lhe lack of lL affecLs Lhe very auLhorlLy of Lhe courL
Lo Lake cognlzance of Lhe case Lhe ob[ecLlon may be ralsed aL any sLage of Lhe
proceedlngs Powever conslderlng Lhe facLs and clrcumsLances of Lhe presenL case
whlch shall forLhwlLh be seL forLh We are of Lhe oplnlon LhaL Lhe SureLy ls now
barred by locbes from lnvoklng Lhls plea aL Lhls laLe hour for Lhe purpose of
annullng everyLhlng done hereLofore ln Lhe case wlLh lLs acLlve parLlclpaLlon
As already sLaLed Lhe acLlon was commenced ln Lhe CourL of llrsL lnsLance of Cebu
on !uly 19 1948 LhaL ls almosL flfteeo yeots befote Lhe SureLy flled lLs moLlon Lo
dlsmlss on !anuary 12 1963 ralslng Lhe quesLlon of lack of [urlsdlcLlon fot tbe fltst
tlme
lL musL be remembered LhaL alLhough Lhe acLlon orlglnally was excluslvely agalnsL
Lhe Slbonghanoy spouses Lhe SureLy became a quaslparLy Lhereln slnce !uly 31
1948 when lL flled a counLerbond for Lhe dlssoluLlon of Lhe wrlL of aLLachmenL
lssued by Lhe courL of orlgln (8ecord on Appeal pp 1319) Slnce Lhen lL acqulred
cerLaln rlghLs and assumed speclflc obllgaLlons ln connecLlon wlLh Lhe pendlng case
ln accordance wlLh secLlons 12 and 17 8ule 37 8ules of CourL (8auLlsLa vs !oaquln
46 hll 883 klmpang Co vs !avler 63 hll 170)
upon Lhe flllng of Lhe flrsL moLlon for execuLlon agalnsL Lhe counLerbond Lhe
SureLy noL only flled a wrlLLen opposlLlon LhereLo praylng for lLs denlal buL also
asked for an addlLlonal offltmotlve tellef LhaL lL be relleved of lLs llablllLy under
Lhe counLerbond upon Lhe grounds relled upon ln supporL of lLs opposlLlon lack
of [urlsdlcLlon of Lhe courL o poo noL belng one of Lhem
1hen aL Lhe hearlng on Lhe second moLlon for execuLlon agalnsL Lhe counLerbond
Lhe SureLy appeared Lhrough counsel Lo ask for Llme wlLhln whlch Lo flle an answer
or opposlLlon LhereLo 1hls moLlon was granLed buL lnsLead of such answer or
opposlLlon Lhe SureLy flled Lhe moLlon Lo dlsmlss menLloned hereLofore
A parLy may be esLopped or barred from ralslng a quesLlon ln dlfferenL ways and for
dlfferenL reasons 1hus we speak of esLoppel lo pols or esLoppel by deed or by
record and of esLoppel by locbes
Laches ln a general sense ls fallure or neglecL for an unreasonable and unexplalned
lengLh of Llme Lo do LhaL whlch by exerclslng due dlllgence could or should have
been done earller lL ls negllgence or omlsslon Lo asserL a rlghL wlLhln a reasonable
Llme warranLlng a presumpLlon LhaL Lhe parLy enLlLled Lo asserL lL elLher has
abandoned lL or decllned Lo asserL lL
1he docLrlne of laches or of sLale demands ls based upon grounds of publlc pollcy
whlch requlres for Lhe peace of socleLy Lhe dlscouragemenL of sLale clalms and
unllke Lhe sLaLuLe of llmlLaLlons ls noL a mere quesLlon of Llme buL ls prlnclpally a
quesLlon of Lhe lnequlLy or unfalrness of permlLLlng a rlghL or clalm Lo be enforced
or asserLed
lL has been held LhaL a parLy can noL lnvoke Lhe [urlsdlcLlon of a courL Lo sure
afflrmaLlve rellef agalnsL hls opponenL and afLer obLalnlng or falllng Lo obLaln such
rellef repudlaLe or quesLlon LhaL same [urlsdlcLlon (uean vs uean 136 Cr 694 86
AL8 79) ln Lhe case [usL clLed by way of explalnlng Lhe rule lL was furLher sald
LhaL Lhe quesLlon wheLher Lhe courL had [urlsdlcLlon elLher of Lhe sub[ecLmaLLer of
Lhe acLlon or of Lhe parLles was noL lmporLanL ln such cases because Lhe parLy ls
barred from such conducL oot becoose tbe joJqmeot ot otJet of tbe coott ls vollJ
ooJ coocloslve os oo oJjoJlcotloo bot fot tbe teosoo tbot socb o ptoctlce coo oot be
toletoteJ obvlously for reasons of publlc pollcy
lurLhermore lL has also been held LhaL afLer volunLarlly submlLLlng a cause and
encounLerlng an adverse declslon on Lhe merlLs lL ls Loo laLe for Lhe loser Lo
quesLlon Lhe [urlsdlcLlon or power of Lhe courL (ease vs 8aLhbun!ones eLc 243
uS 273 61 L Ld 713 37 S CL 283 SL Louls eLc vs Mc8rlde 141 uS 127 33 L
Ld 639) And ln LlLLleLon vs 8urgess 16 Wyo 38 Lhe CourL sald LhaL lL ls noL rlghL
for a parLy who has afflrmed and lnvoked Lhe [urlsdlcLlon of a courL ln a parLlcular
maLLer Lo secure an afflrmaLlve rellef Lo afLerwards deny LhaL same [urlsdlcLlon Lo
escape a penalLy
upon Lhls same prlnclple ls whaL We sald ln Lhe Lhree cases menLloned ln Lhe
resoluLlon of Lhe CourL of Appeals of May 20 1963 (sopto) Lo Lhe effecL LhaL we
frown upon Lhe undeslrable pracLlce of a parLy submlLLlng hls case for declslon
and Lhen accepLlng Lhe [udgmenL only lf favorable and aLLacklng lL for lack of
[urlsdlcLlon when adverse as well as ln lloJoqoo etc vs uoos et ol C8 L
14391 SepLember 26 1962 Mootellbooo et ol vs 8ocoloJMotclo Mlllloq co
loc C8 L13092 oooq Meo lobot uoloo etc vs 1be coott of loJosttlol kelotloo
et ol C8 L20307 leb 26 1963 and Mejlo vs locos 100 hll p 277
1he facLs of Lhls case show LhaL from Lhe Llme Lhe SureLy became a quaslparLy on
!uly 31 1948 lL could have ralsed Lhe quesLlon of Lhe lack of [urlsdlcLlon of Lhe
CourL of llrsL lnsLance of Cebu Lo Lake cognlzance of Lhe presenL acLlon by reason of
Lhe sum of money lnvolved whlch accordlng Lo Lhe law Lhen ln force was wlLhln
Lhe orlglnal excluslve [urlsdlcLlon of lnferlor courLs lL falled Lo do so lnsLead aL
several sLages of Lhe proceedlngs ln Lhe courL o poo as well as ln Lhe CourL of
Appeals lL lnvoked Lhe [urlsdlcLlon of sald courLs Lo obLaln afflrmaLlve rellef and
submlLLed lLs case for a flnal ad[udlcaLlon on Lhe merlLs lL was only afLer an adverse
declslon was rendered by Lhe CourL of Appeals LhaL lL flnally woke up Lo ralse Lhe
quesLlon of [urlsdlcLlon Were we Lo sancLlon such conducL on lLs parL We would ln
effecL be declarlng as useless all Lhe proceedlngs had ln Lhe presenL case slnce lL
was commenced on !uly 19 1948 and compel Lhe [udgmenL credlLors Lo go up Lhelr
Calvary once more 1he lnequlLy and unfalrness of Lhls ls noL only paLenL buL
revolLlng
73

Comlng now Lo Lhe merlLs of Lhe appeal afLer golng over Lhe enLlre record We
have become persuaded LhaL We can do noLhlng beLLer Lhan Lo quoLe lo toto wlLh
approval Lhe declslon rendered by Lhe CourL of Appeals on uecember 11 1962 as
follows
ln Clvll Case no 8660 of Lhe CourL of llrsL lnsLance of Cebu whlch was a sulL for
collecLlon of a sum of money a wrlL of aLLachmenL was lssued agalnsL defendanLs
properLles 1he aLLachmenL however was subsequenLly dlscharged under SecLlon
12 of 8ule 39 upon Lhe flllng by defendanLs of a bond subscrlbed by Manlla SureLy
lldellLy Co lnc
AfLer Lrlal [udgmenL was rendered ln favor of plalnLlffs
1he wrlL of execuLlon agalnsL defendanLs havlng been reLurned LoLally unsaLlsfled
plalnLlffs moved under SecLlon 17 of 8ule 39 for lssuance of wrlL of execuLlon
agalnsL Manlla SureLy lldellLy Co lnc Lo enforce Lhe obllgaLlon of Lhe bond 8uL
Lhe moLlon was upon Lhe sureLys opposlLlon denled on Lhe ground LhaL Lhere was
no showlng LhaL a demand had been made by Lhe plalnLlffs Lo Lhe bondlng
company for paymenL of Lhe amounL due under Lhe [udgmenL (8ecord on Appeal
p 60)
Pence plalnLlffs made Lhe necessary demand upon Lhe sureLy for saLlsfacLlon of Lhe
[udgmenL and upon Lhe laLLers fallure Lo pay Lhe amounL due plalnLlffs agaln flled
a moLlon daLed CcLober 31 1937 for lssuance of wrlL of execuLlon agalnsL Lhe
sureLy wlLh noLlce of hearlng on november 2 1937 Cn CcLober 31 1937 Lhe
sureLy recelved copy of sald moLlon and noLlce of hearlng
lL appears LhaL when Lhe moLlon was called on november 2 1937 Lhe sureLys
counsel asked LhaL he be glven Llme wlLhln whlch Lo answer Lhe moLlon and so an
order was lssued ln open courL as follows1owpbt1et
As ptoyeJ fot ALLy !ose Soberano !r counsel for Lhe Manlla SureLy lldellLy
Co lnc Cebu 8ranch ls qlveo ootll weJoesJoy Novembet 6 1937 to flle bls
ooswet Lo Lhe moLlon for Lhe lssuance of a wrlL of execuLlon daLed CcLober 30
1937 of Lhe plalnLlffs oftet wblcb tbls loclJeot sboll be JeemeJ sobmltteJ fot
tesolotloo
SC C8uL8Lu
Clven ln open courL Lhls 2nd day of november 1937 aL Cebu ClLy hlllpplnes
(Sgd) !CSL M MLnuCZA
!udge
(8ecord on Appeal pp
6463 emphasls ours)
Slnce Lhe sureLys counsel falled Lo flle any answer or ob[ecLlon wlLhln Lhe perlod
glven hlm Lhe courL on uecember 7 1937 lssued an order granLlng plalnLlffs
moLlon for execuLlon agalnsL Lhe sureLy and on uecember 12 1937 Lhe
correspondlng wrlL of execuLlon was lssued
Cn uecember 24 1937 Lhe sureLy flled a moLlon Lo quash Lhe wrlL of execuLlon on
Lhe ground LhaL Lhe same was lssued wlLhouL Lhe requlremenLs of SecLlon 17 8ule
39 of Lhe 8ules of CourL havlng been complled wlLh more speclflcally LhaL Lhe
same was lssued wlLhouL Lhe requlred summary hearlng 1hls moLlon was denled
by order of lebruary 10 1938
Cn lebruary 23 1938 Lhe sureLy flled a moLlon for reconslderaLlon of Lhe above
sLaLed order of denlal whlch moLlon was llkewlse denled by order of March 26
1938
lrom Lhe abovesLaLed orders of lebruary 10 1938 and March 26 1938 denylng
Lhe sureLys moLlon Lo quash Lhe wrlL of execuLlon and moLlon for reconslderaLlon
respecLlvely Lhe sureLy has lnLerposed Lhe appeal on hand
1he sureLy lnslsLs LhaL Lhe lower courL should have granLed lLs moLlon Lo quash Lhe
wrlL of execuLlon because Lhe same was lssued wlLhouL Lhe summary hearlng
requlred by SecLlon 17 of 8ule 39 whlch reads
Sec 17 wbeo execotloo tetotoeJ oosotlsfleJ tecovety boJ opoo booJ lf Lhe
execuLlon be reLurned unsaLlsfled ln whole or ln parL Lhe sureLy or sureLles on any
bond glven pursuanL Lo Lhe provlslons of Lhls role Lo secure Lhe paymenL of Lhe
[udgmenL shall become flnally charged on such bond and bound Lo pay Lo Lhe
plalnLlff upon demand Lhe amounL due under Lhe [udgmenL whlch amounL may be
recovered from such sureLy or sureLles afLer noLlce and sommoty beotloq lo tbe
some octloo (Lmphasls ours)
Summary hearlng ls noL lnLended Lo be carrled on ln Lhe formal manner ln whlch
ordlnary acLlons are prosecuLed (83 C!S 792) lL ls raLher a procedure by whlch a
quesLlon ls resolved wlLh dlspaLch wlLh Lhe leasL posslble delay and ln preference
Lo ordlnary legal and regular [udlclal proceedlngs (lblJ p 790) WhaL ls essenLlal ls
LhaL Lhe defendanL ls noLlfled or summoned Lo appear and ls glven an opporLunlLy
Lo hear whaL ls urged upon hlm and Lo lnLerpose a defense afLer whlch follows an
ad[udlcaLlon of Lhe rlghLs of Lhe parLles (lblJ pp 793794) and as Lo Lhe exLenL
and laLlLude of Lhe hearlng Lhe same wlll naLurally lle upon Lhe dlscreLlon of Lhe
courL dependlng upon Lhe aLLendlng clrcumsLances and Lhe naLure of Lhe lncldenL
up for conslderaLlon
ln Lhe case aL bar Lhe sureLy had been noLlfled of Lhe plalnLlffs moLlon for
execuLlon and of Lhe daLe when Lhe same would be submlLLed for conslderaLlon ln
facL Lhe sureLys counsel was presenL ln courL when Lhe moLlon was called and lL
was upon hls requesL LhaL Lhe courL o poo gave hlm a perlod of four days wlLhln
whlch Lo flle an answer ?eL he allowed LhaL perlod Lo lapse wlLhouL flllng an answer
or ob[ecLlon 1he sureLy cannoL now Lherefore complaln LhaL lL was deprlved of lLs
day ln courL
lL ls argued LhaL Lhe sureLys counsel dld noL flle an answer Lo Lhe moLlon for Lhe
slmple reason LhaL all lLs defenses can be seL up durlng Lhe hearlng of Lhe moLlon
even lf Lhe same are noL reduced Lo wrlLlng (AppellanLs brlef p 4) 1here ls
obvlously no merlL ln Lhls preLense because as sLaLed above Lhe record wlll show
LhaL when Lhe moLlon was called whaL Lhe sureLys counsel dld was Lo ask LhaL he
be allowed and glven Llme Lo flle an answer Moreover lL was sLaLed ln Lhe order
74

glven ln open courL upon requesL of Lhe sureLys counsel LhaL afLer Lhe fourday
perlod wlLhln whlch Lo flle an answer Lhe lncldenL shall be deemed submlLLed for
resoluLlon and counsel apparenLly agreed as Lhe order was lssued upon hls
lnsLance and he lnLerposed no ob[ecLlon LhereLo
lL ls also urged LhaL alLhough accordlng Lo SecLlon 17 of 8ule 39 sopto Lhere ls no
need for a separaLe acLlon Lhere musL however be a separaLe [udgmenL agalnsL
Lhe sureLy ln order Lo hold lL llable on Lhe bond (AppellanLs 8rlef p 13) noL so ln
our oplnlon A bond flled for dlscharge of aLLachmenL ls per SecLlon 12 of 8ule 39
Lo secure Lhe paymenL Lo Lhe plalnLlff of any [udgmenL he may recover ln Lhe
acLlon and sLands lo ploce of tbe ptopetty so teleoseJ Pence afLer Lhe
[udgmenL for Lhe plalnLlff has become execuLory and Lhe execuLlon ls reLurned
unsaLlsfled (Sec 17 8ule 39) as ln Lhls case Lhe llablllLy of Lhe bond auLomaLlcally
aLLaches and ln fallure of Lhe sureLy Lo saLlsfy Lhe [udgmenL agalnsL Lhe defendanL
desplLe demand Lherefor wrlL of execuLlon may lssue agalnsL Lhe sureLy Lo enforce
Lhe obllgaLlon of Lhe bond
uCn ALL 1PL lC8LCClnC Lhe orders appealed from are hereby afflrmed wlLh
cosLs agalnsL Lhe appellanL Manlla SureLy and lldellLy Company lnc

9LC9LL VS VLkA
Gk No 113116 Cctober 30 1996

vl1uC Ip
8onald ue vera was charged wlLh Lhe crlme of parrlclde under an lnformaLlon LhaL
read
1haL on or abouL Lhe 30Lh day of SepLember 1990 ln Cuezon ClLy hlllpplnes and
wlLhln Lhe [urlsdlcLlon of Lhls Ponorable CourL Lhe abovenamed accused wlLh
evldenL premedlLaLlon dld Lhen and Lhere wllfully unlawfully and felonlously
aLLack assaulL and employ personal vlolence upon Lhe person of one l8MA
ASu8lAS uL vL8A hls wlfe by Lhen and Lhere sLrangllng her neck wlLh a sash
Lhereby causlng her lnsLanLaneous deaLh Lo Lhe damage and pre[udlce of Lhe helr
of Lhe sald lrma Aspurlas de vera
CCn18A8? 1C LAW
1

Pe pleaded noL gullLy Lo Lhe accusaLlon
1he prosecuLlons accounL of Lhe lncldenL may be narraLed as follows
ln Lhe afLernoon of 30 SepLember 1990 lrma Aspurlas ue vera Lhe young
housewlfe of Lhe accused was aL home wlLh household helper lranclsca Lugenlo
(lranclng) Lhelr LenanL Lorna AnLeola Lhe accuseds slsLer 8owena de vera !esulLas
and Lhe laLLers husband Arnel !esulLas AL abouL 300 pm lrmas husband
accused 8onald de vera arrlved 8onald asked lrma who was Lhen aL Lhe klLchen
wlLh lranclng and Lorna Lo [oln hlm ln Lhe bedroom upsLalrs ln order Lo dlscuss an
lmporLanL maLLer WlLhln mlnuLes Lorna heard a commoLlon ln Lhe couples
bedroom She could hear LhaL Lhe Lwo were engaged ln a shouLlng maLch 1hen
Lhere was compleLe sllence AfLer a whlle senslng LhaL all was well agaln Lorna
wenL upsLalrs 1o her surprlse she saw 8onald asslsLed by Arnel carrylng a
dlsabled lrma ouL of Lhe room 1he laLLer was broughL Lo Lhe Cuezon ClLy Medlcal
CenLer where she was pronounced dead on arrlval Looklng over aL Lhe couples
bedroom Lorna and lranclng saw LhaL Lhe place was ln dlssaray
1he Cuezon ClLy ollce conducLed LhaL evenlng an lnvesLlgaLlon of Lhe lncldenL
SC1 !ose Cll Cregorlo made an ocular lnspecLlon Pe reporLed LhaL Lhe bullLln
cablneLs ln Lhe couples bedroom were open Lhe bedsheeLs were crumpled and
cloLhes and perfume boLLles were scaLLered all over Lhe place
ln Lhe medlcolegal examlnaLlon conducLed on 04 CcLober 1990 by Lhe pollce Lhe
cause of deaLh was sald Lo be asphyxla by hanglng
2

1he naLlonal 8ureau of lnvesLlgaLlon (n8l) aL Lhe requesL of Lhe Commlsslon on
Puman 8lghLs
3
underLook lLs own lnvesLlgaLlon of Lhe case lrmas body was
exhumed and a second auLopsy was conducLed
4
1hls Llme Lhe cause of deaLh was
found Lo be asphyxla compaLlble wlLh sLrangulaLlon
3

1he defense soughL Lo convlnce Lhe Lrlal courL LhaL lrma Look her own llfe lLs
verslon of Lhe lncldenL follows
8onald and hls wlfe had a heaLed argumenL abouL Lhelr fallure Lo aLLend Lhe
weddlng of hls slsLer 8owena Lo Arnel !esulLas lrma and 8owenas relaLlonshlp
concededly was sLralned Accordlng Lo 8onald lrma became hysLerlcal durlng Lhe
confronLaLlon 8onald Lrled buL falled Lo calm down hls wlfe Pe laLer lefL Lhe
room purporLedly Lo geL hls LooLhbrush from Lhe baLhroom When he reLurned
he found Lhe door of Lhelr room already locked Pe knocked aL Lhe door repeaLedly
buL lrma would noL leL hlm ln 8onald wenL downsLalrs and afLer abouL Len
mlnuLes he wenL back buL he sLlll could noL geL ln llnally he declded Lo enLer Lhe
room Lhrough Lhe wlndow Pe found lrma slLLlng wlLh her head down and
moLlonless Pe Lapped her on Lhe shoulder and called her name buL she dld noL
respond Pe felL her pulse Pe noLlced a sash around her neck whlch was Lled Lo an
lron bar of Lhe cablneL 8onald removed Lhe sash from Lhe cablneL and Look lL off
from lrmas neck Pe Lhen wlLh Lhe help of 8owena and Arnel rushed lrma Lo Lhe
hosplLal where Lhe aLLendlng physlclans Lrled buL falled Lo revlve hls wlfe
6

Cn 14 uecember 1993 Lhe Lrlal courL
7
declded Lhe case lL concluded
WPL8LlC8L Lhe CourL flnds accused 8onald ue vera gullLy beyond reasonable
doubL of Lhe crlme of parrlclde charged hereln deflned and punlshed ln ArL 246 of
Lhe 8evlsed enal Code as prlnclpal ln Lhe commlsslon Lhereof and accordlngly he
ls hereby senLenced Lo suffer Lhe penalLy of teclosloo petpetoo Lo lndemnlfy Lhe
helrs of Lhe deceased lrma Aspurlas ue vera ln Lhe sum of flfLy Lhousand pesos as
deaLh lndemnlLy Lo pay her moLher Melanda Aspurlas Lhe sum of flfLeen Lhousand
four hundred flfLeen pesos as acLual damages and Lo pay Lhe cosLs wlLhouL
pre[udlce Lo Lhe appllcaLlon of 8ep AcL no 6127 ln hls favor
SC C8uL8Lu
8

73

ln hls appeal Lo Lhls CourL accusedappellanL makes Lhe followlng submlsslons 1haL

1PL LCWL8 CCu81 L88Lu ln llnulnC 1PA1 1PL P?SlCAL LvluLnCL 8CvLu
8L?Cnu 8LASCnA8LL uCu81 1PA1 l8MAS uLA1P WAS CAuSLu 8? ASP?xlA
1P8CuCP PCMlCluAL S18AnCuLA1lCn
1PL LCWL8 CCu81 L88Lu ln 8LL?lnC Cn Cl8CuMS1An1lAL LvluLnCL 1C
SuC81 l1S CCnCLuSlCn 1PA1 8CnALu CAuSLu l8MAS uLA1P 1P8CuCP
S18AnCuLA1lCn
1PL LCWL8 CCu81 L88Lu ln llnulnC 1PL ACCuSLu CulL1? 8L?Cnu 8LASCnA8LL
uCu81 Cl 1PL C8lML CPA8CLu
9

ur 8enaLo 8auLlsLa Lhe MedlcoLegal Cfflcer of Lhe n8l concluded LhaL Lhe cause
of deaLh was asphyxla compaLlble wlLh sLrangulaLlon Whlle ur 8auLlsLa conceded
LhaL an auLopsy on a fresh cadaver would normally be more rellable ln deLermlnlng
Lhe cause of deaLh Lhan LhaL conducLed aL Lhe laLer Llme much would depend
however he sald on how Lhe auLopsy was underLaken and on Lhe condlLlon of Lhe
cadaver lL would appear LhaL Lhe posLmorLem lnvesLlgaLlon on Lhe cadaver
conducLed by Lhe n8l was decldedly more exLenslve and exhausLlve Lhan Lhe
cursory examlnaLlon prevlously made by Lhe pollce ur 8auLlsLa LesLlfled
C WhaL made you conclude Mr wlLness LhaL Lhe cause of deaLh was asphyxla
compaLlble wlLh sLrangulaLlon?
A Well slr aslde from Lhe absence of any llgaLure mark on Lhe neck Lhe presence
of Lhe dlfferenL ln[urles locaLed on Lhe neck and Lhe flndlngs on Lhe lnferlor Lhlrd of
Lhe Lhyrold carLllage Lowards and lncludlng superlor parL of Lhe flrsL porLlon of Lhe
Lrachea revealed marked congesLlon l belleved LhaL Lhe cause of deaLh was
sLrangulaLlon
xxx xxx xxx
C Mr wlLness based on your flndlngs how was Lhe sLrangulaLlon done ln your
oplnlon Mr wlLness?
A lL was done manually slr
C WhaL made you conclude Mr wlLness LhaL lL was done manually?
A Well slr slnce Lhe dlfferenL conLusedabraslons on Lhe neck of Lhe vlcLlm made
me conclude sald oplnlon because Lhls could have been caused Lhese conLused
abraslons could have been caused by flngernalls slr
xxx xxx xxx
C Pow abouL Lhese Lhlngs whlch you are referrlng Lo as llgaLure marks ls LhaL noL
also a speclflc example of vlLal evldence LhaL ls usually Lempered wlLh or even
desLroyed by Lhe process of embalmlng?
A no your Ponor
C Could you enllghLen us why you say so?
A Cn Lhe conLrary Lhere are ln[urles especlally Lhese llgaLure marks whlch mlghL
appear on Lhe cadaver whlch mlghL noL be seen lmmedlaLely afLer Lhe deaLh of Lhe
vlcLlm and ln lLs parLlcular case lf Lhere were llgaLures marks presenL on Lhe neck l
should have readlly seen lL
C Could you klndly explaln Lhe naLure of Lhe llgaLure marks?
A A llgaLure mark your Ponor ls Lhe lnfllcLmenL of Lhe llgaLures on Lhe skln
C ls lL usually lnfllcLed or produced ln Lhe skln?
A 8ecause of Lhe LlghLness on Lhe parLlcular porLlon of Lhe skln llgaLure mark wlll
leave lLs mark Lherefore Lhere ls LhaL slLuaLlon now lf lL ls a case of sofL maLerlal leL
us say Lhe llnen ln mosL cases LhaL donL leave a mark buL deflnlLely on Lhe auLopsy
you wlll see LhaL Lhere ls a vlLal reacLlon underneaLh Lhe skln
C WhaL ls Lhe vlLal reacLlon underneaLh Lhe skln?
A 1here ls reddenlng of Lhe muscle Llssue someLlmes congesLlve someLlmes Lhere ls
fracLures on Lhe Lrachea
C Could you sLlll see Lhe reddenlng or Lhe congesLlon lefL by such even afLer
embalmlng?
A ?es slr
C So Lhese marks of evldence can survlve Lhe process of embalmlng?
A ?es slr
C And ln your auLopsy none of Lhese evldence ls presenL ln Lhls parLlcular vlcLlm?
A 1here was slr
C WhaL was LhaL?
A 1here was a sllghL congesLlon and Lhere was a marked congesLlon of Lhe lower
Lhlrd of Lhe Lhyrold carLllage Lowards and lncludlng Lhe superlor parL of Lhe flrsL
porLlon of Lhe Lrachea revealed marked congesLlon (crlcold carLllage
xxx xxx xxx
A11? MA81lnLZ
C Wlll noL Lhe lapse of Llme of abouL one and one half monLh beLween deaLh and
auLopsy erase or blurred Lhe Lrace of Lhe llgaLure marks?
A May l quallfy my answer ln cases of vlcLlm LhaL were noL embalmed and
submerged ln waLer yes buL ln case of embalmlng no
C So lf Lhe vlcLlm ls noL embalmed and noL submerged ln waLer lL wlll erase Lhe
marks?
A ?es slr
C And you would llke us Lo undersLand LhaL Lhe embalmlng would preserve llgaLure
marks?
A ?es slr
C And you are 100 cerLaln LhaL Lhe cadaver had undergone embalmlng?
A ?es slr and Lhere were no llgaLure marks ln Lhe neck
CCu81
l have some clarlflcaLory quesLlons (Lo Lhe wlLness)
C ?ou sald LhaL Lhere were no llgaLure marks ln Lhe neck ls LhaL correcL?
A ?es slr
xxx xxx xxx
76

8CS (Lo Lhe wlLness)
C uocLor ln your oplnlon do Lhe conLuslons and abraslons LhaL appeared ln Lhe
cadaver could have been selflnfllcLed?
A11? MA81lnLZ (Lo Lhe CourL)
Cb[ecLlon noL covered ln Lhe cross
8CS
l wlLhdraw (Lo Lhe wlLness)
C ln your oplnlon were Lhe conLuslons and abraslons
l reform
ln your oplnlon were Lhe conLusedabraslons appearlng ln Lhe cadaver and referred
Lo by you ln LxhlblL l1 selflnfllcLed or noL?
A11? MA81lnLZ (Lo Lhe CourL)
Cb[ecLlon noL covered ln Lhe crossexamlnaLlon
CCu81
8ullng May answer
A no slr
8CS (Lo Lhe wlLness)
C WhaL made you conclude uocLor LhaL Lhe conLusedabraslons were noL self
lnfllcLed?
A lL ls very hard for an lndlvldual Lo sLrangulaLe oneself manually because ln Lhe
process Lhere wlll be a dlmlnlsh flow of oxygen Lo Lhe braln resulLlng Lo Lhe sLaLe of
unconsclousness whereby releaslng Lhe sald sLrangled hold on ones neck
C ln your auLopsy and examlnaLlon of Lhe cadaver dld you noLlce any breakage ln
Lhe Lrachea?
A none slr
C ln your oplnlon whaL could be Lhe evldences LhaL would appear ln Lhe neck or ln
Lhe Lrachea lf a person dled by hanglng?
A usually Lhere ls a presence of llgaLure marks Lhe presence of Lhe knoL elLher on
Lhe lefL slde or aL Lhe rlghL slde of Lhe neck and no evldence of fracLure of Lhe hyold
bone and ln some cases Lhere ls fracLure on Lhe lower porLlon of Lhe Lhyrold ln
such a way LhaL lL was verLlcal as Lo wherever Lhe knoL ls locaLed
C uld you observe Lhese marks LhaL you sLaLed ln Lhe cadaver of Lhe vlcLlm?
A no slr
10

8elaLlve Lo Lhe conLenLlon LhaL Lhe condlLlon of Lhe cadaver could have been
maLerlally alLered ln Lhe process of embalmlng ur 8auLlsLa explalned
CCu81
LeL me go Lo Lhe conLusedabraslons LhaL you referred Lo ln your dlrecL
examlnaLlon ?ou sald LhaL Lhese can be caused by flngernalls could LhaL have been
caused by some oLher Lhlng LhaL ls oLher Lhan flngernalls?
A 1here ls a posslblllLy your Ponor
C WhaL ls Lhe posslble compeLenL cause of such conLusedabraslons oLher Lhan
flngernalls?
A leces of wood slr
C So you can glve an example oLher Lhan flngernalls?
A l would say a small plece of wood lor example pleces of woods wlLh brlsLles hard
enough Lo cause l mean Lhree pleces of wounds on Lhe rlghL and Lwo on Lhe lefL
slde of Lhe neck
C noLhlng ln Lhe process of embalmlng could have posslbly cause LhaL conLused
abraslons?
A noLhlng a posslblllLy exlsLs your Ponor ln Lhe use of suLurlng maLerlals
C And Lhls suLurlng maLerlals are normally used or parL of Lhe equlpmenL of Lhe
embalmer?
A ?es slr
C ln facL Lhe embalmer can noL proceed wlLhouL suLurlng maLerlals?
A ?es slr
C And Lhese suLurlng maLerlals whlch are normally used by Lhe embalmer are
usually parLlcularly ln Lhe neck of Lhe cadaver?
A no your Ponor
C WhaL parLlcular parL are usually dealL wlLh suLurlng maLerlals by Lhe embalmer?
A 1hey can make lnclslon ln Lhe lefL slde of Lhe neck where Lhey ln[ecL Lhe formalln
Lo Lhe braln and also an lnclslon on Lhe Lhlgh now lf Lhls was caused by Lhe suLurlng
maLerlals Lhere could be no reacLlon
C So Lhe person ls dead?
A ?es slr
C 8uL ln Lhe process of embalmlng ln order Lo reach Lhe caroLld Lhe embalmer
would be uslng Lhe head ln dolng LhaL?
A ?es slr
C And so he would be dolng a manual handllng of Lhe neck?
A ?es slr
C And ln facL Lhe embalmer would appear Lo be sLrangulaLlng Lhe cadaver so as he
wlll reach Lhe caroLld ls LhaL correcL?
A no slr
C Why noL?
A 1o Lhe polnL LhaL Lhe embalmer wlll reach on Lhe laLeral porLlon
C 8uL Lhe posslblllLy ls LhaL Lhere ls a manual handllng of Lhe neck LhaL can cause
conLusedabraslons as he Lrled Lo reach Lhe caroLld?
A ?es slr
11

lL mlghL be sLressed LhaL ur 8auLlsLa ln maklng hls examlnaLlon and ln ldenLlfylng
Lhe cause of deaLh dld noL fall Lo Lake lnLo accounL Lhe wounds whlch were
apparenLly lnfllcLed afLer lrmas deaLh such as Lhe lnclse wound on Lhe rlghL slde of
her neck and Lhe wound on Lhe wrlsL of Lhe lefL slde on Lhe anLerolaLeral aspecL
12

1he courL o poo has found no reason Lo dlsLrusL Lhe credlblllLy of Lhe prosecuLlon
wlLnesses and Lhe veraclLy of Lhelr LesLlmonles !usL as lL ls ofLen done LhaL an
appellaLe courL would defer Lo Lhe sound [udgmenL of Lhe Lrlal courL ln assesslng
77

Lhe credlblllLy of wlLnesses so also Lhls CourL ls Lhls appeal musL duly and rlghLly
accord LhaL same respecL
13

1he rules of CourL on clrcumsLanLlal evldence provldes
Sec 4 cltcomstootlol evlJeoce wbeo sofflcleot ClrcumsLanLlal evldence ls
sufflclenL for convlcLlon lf
(a) 1here ls more Lhan one clrcumsLance
(b) 1he facLs from whlch Lhe lnferences are derlved are proven and
(c) 1he comblnaLlon of all Lhe clrcumsLances ls such as Lo produce a convlcLlon
beyond reasonable doubL
14

ln Lhls case Lhe SollclLor Ceneral apLly enumeraLed Lhese clrcumsLances Lo be
llrsL Lhe exlsLence of a moLlve Lo klll her wlfe AppellanL clearly LesLlfled LhaL hls
purpose for demandlng from Lhe vlcLlm Lo Lalk lnslde Lhelr room was due Lo Lhelr
nonappearance on Lhe weddlng day of 8owena (appellanLs slsLer) who
lncldenLally was noL ln speaklng Lerms wlLh Lhe vlcLlm and Lhe hurL feellngs
generaLed on appellanLs frlends and relaLlves on accounL of Lhelr nonaLLendance
(pp 2323 Lsn SepLember 10 1993 pp 43 Lsn AugusL 12 1993)
Second Lhe facL LhaL appellanL and Lhe vlcLlm proceeded upsLalrs lnslde Lhelr
bedroom and were alone aL Lhe Llme Lhe lncldenL occurred (p 9 Lsn AugusL 12
1993)
1hlrd Lhe vlolenL commoLlon lnslde Lhe bedroom of Lhe appellanL and Lhe vlcLlm
exempllfled by loud Lhuds or kalabog and shouLs of anger of Lhe vlcLlm Lo Lhe
appellanL whlch Lhe laLLer even acknowledged (pp 2426 Lsn SepLember 10 1993
pp 3 13 Lsn AugusL 12 1993)
lourLh Lhe duraLlon of Lhe vlolenL commoLlon whlch lasLed for approxlmaLely Len
mlnuLes evlnces LhaL a vlolenL sLruggle Look place (pp 3 1314 Lsn AugusL 12
1993)
llfLh Lhe facL LhaL Lhe appellanL was seen LogeLher wlLh hls broLherlnlaw carrylng
Lhe vlcLlm downsLalrs lmmedlaLely afLer Lhe sald commoLlon Look place (p 3 Lsn
AugusL 12 1993)
SlxLh Lhe physlcal condlLlon of Lhe room evlnclng LhaL a vlolenL sLruggle Look place
characLerlzed by Lhe presence of a bolo on Lop of Lhe Lable ln Lhe room wlLh lLs
bedsheeLs and plllows dlsarrayed Lhe bullLln cablneL doors open cloLhes and
perfume boLLles scaLLered (p 13 Lsn AugusL 16 1993 p 6 AugusL 12 1993 p 13
Lsn AugusL 6 1993
SevenLh Lhe cotpos Jellctl lndlcaLlng LhaL Lhe vlcLlm was sLrangled Lo deaLh
exempllfled by conLuseabraslons on Lhe vlcLlms neck and oLher parLs of Lhe body
characLerlzed by marked congesLlons on Lhe superlor parL of Lhe flrsL porLlon of Lhe
Lrachea and Lhe Lhyrold carLllage whlch was even deLecLed by Lhe n8l Medlco Legal
Cfflcer ur 8auLlsLa aL Lhe Llme he conducLed an auLopsy on Lhe vlcLlms body (p 10
Lsn AugusL 6 1993 p 20 Lsn !une 21 1993 LxhlblLs l l1 l2 l3 l4)
LlghLh Lhe aLLempL on Lhe parL of Lhe appellanL Lo mlslead Lhe pollce lnvesLlgaLors
and coverup Lhe cotpos Jellctl by maklng lL Lo appear ln hls Slnumpaang Salaysay
(LxhlblL n) LhaL Lhe vlcLlm dled due Lo sulcldal hanglng (p 8 Lsn SepLember 10
1993)
13

All Lhe above Laken collecLlvely sufflclenLly consLlLuLed an unbroken chaln of
evenLs LhaL lndeed would polnL Lo accusedappellanL Lo Lhe excluslon of all oLhers
Lo be Lhe auLhor of Lhe crlme
16

WPL8LlC8L Lhe declslon appealed from Lhe Alll8MLu lo toto CosLs agalnsL
accusedappellanL
SC C8uL8Lu

AkCL1A VS IUDGL MANGkC8ANG
Gk No 1S289S Iune 1S 2004
CulSuM8lnC I
lor resoluLlon are Lwo consolldaLed
1
peLlLlons under 8ule 63 of Lhe 8ules of CourL
for cerLlorarl prohlblLlon and mandamus wlLh prayers for a Lemporary resLralnlng
order 8oLh assall Lhe consLlLuLlonallLy of Lhe 8ounclng Checks Law also known as
8aLas ambansa 8llang 22
ln C8 no 132893 peLlLloner Cfella v ArceLa prays LhaL we order Lhe MeLropollLan
1rlal CourL (Me1C) of navoLas MeLro Manlla 8ranch 34 Lo cease and deslsL from
hearlng Crlmlnal Case no 1399C8 for vlolaLlon of 8 8lg 22 and Lhen dlsmlss Lhe
case agalnsL her ln C8 no 133131 peLlLloner Clorla S uy also prays LhaL Lhls
CourL order Lhe Me1C of Caloocan ClLy Lo cease and deslsL from proceedlng wlLh
Crlmlnal Case no 212183 and subsequenLly dlsmlss Lhe case agalnsL her ln flne
however we flnd LhaL whaL boLh peLlLloners seek ls LhaL Lhe CourL should revlslL
and abandon Lhe docLrlne lald down ln lozooo v Mottloez
2
whlch upheld Lhe
valldlLy of Lhe 8ounclng Checks Law
1he facLs of Lhese cases are noL ln dlspuLe
1 Ck No 152895
1he ClLy rosecuLor of navoLas MeLro Manlla charged Cfella v ArceLa wlLh
vlolaLlng 8 8lg 22 ln an lnformaLlon whlch was dockeLed as Crlmlnal Case no
1399C8 1he accusaLory porLlon of sald lnformaLlon reads
1haL on or abouL Lhe 16Lh day of SepLember 1998 ln navoLas MeLro Manlla and
wlLhln Lhe [urlsdlcLlon of Lhls Ponorable CourL Lhe abovenamed accused dld Lhen
and Lhere wllfully unlawfully and felonlously make or draw and lssue Lo CSCA8 8
CAS18C Lo apply on accounL or for value Lhe check descrlbed below
Check no 00082270
urawn AgalnsL 1he 8eglon 8ank
ln Lhe AmounL of 74000000
uaLe uecember 21 1998
78

ayable Lo Cash
sald accused wellknowlng LhaL aL Lhe Llme of lssue Cfella v ArceLa dld noL have
sufflclenL funds or credlL wlLh Lhe drawee bank for Lhe paymenL whlch check when
presenLed for paymenL wlLhln nlneLy (90) days from Lhe daLe Lhereof was
subsequenLly dlshonored by Lhe drawee bank for reason u8AWn ACAlnS1
lnSulllClLn1 lunuS and desplLe recelpL of noLlce of such dlshonor Lhe accused
falled Lo pay sald payee wlLh Lhe face amounL of sald check or Lo make arrangemenL
for full paymenL Lhereof wlLhln flve (3) banklng days afLer recelvlng noLlce
CCn18A8? 1C LAW
3

ArceLa dld noL move Lo have Lhe charge agalnsL her dlsmlssed or Lhe lnformaLlon
quashed on Lhe ground LhaL 8 8lg 22 was unconsLlLuLlonal She reasoned ouL
LhaL wlLh Lhe lozooo docLrlne sLlll ln place such a move would be an exerclse ln
fuLlllLy for lL was hlghly unllkely LhaL Lhe Lrlal courL would granL her moLlon and Lhus
go agalnsL prevalllng [urlsprudence
Cn CcLober 21 2002
4
ArceLa was arralgned and pleaded noL gullLy Lo Lhe charge
Powever she manlfesLed LhaL her arralgnmenL should be wlLhouL pre[udlce Lo Lhe
presenL peLlLlon or Lo any oLher acLlons she would Lake Lo suspend proceedlngs ln
Lhe Lrlal courL
ArceLa Lhen flled Lhe lnsLanL peLlLlon
2 Ck No 15J151
1he Cfflce of Lhe ClLy rosecuLor of Caloocan flled a charge sheeL agalnsL Clorla S
uy for vlolaLlon of Lhe 8ounclng Checks Law dockeLed by Lhe Me1C of Caloocan ClLy
as Crlmlnal Case no 212183 uy allegedly commlLLed Lhe offense ln Lhls wlse
1haL on or abouL Lhe monLh of !anuary 2000 ln Caloocan ClLy MeLro Manlla
hlllpplnes and wlLhln Lhe [urlsdlcLlon of Lhls Ponorable CourL Lhe abovenamed
accused dld Lhen and Lhere wllfully unlawfully and felonlously make and lssue
Check no 0000329230 drawn agalnsL 8uuLn1lAL 8Ank ln Lhe amounL of
230000000 daLed !anuary 19 2000 Lo apply for value ln favor of Anl1A CPuA
well knowlng aL Lhe Llme of lssue LhaL she has no sufflclenL funds ln or credlL wlLh
Lhe drawee bank for Lhe paymenL of such check ln full upon lLs presenLmenL whlch
check was subsequenLly dlshonored for Lhe reason ACCCun1 CLCSLu and wlLh
lnLenL Lo defraud falled and sLlll falls Lo pay Lhe sald complalnanL Lhe amounL of
230000000 desplLe recelpL of noLlce from Lhe drawee bank LhaL sald check has
been dlshonored and had noL been pald
ConLrary Lo Law
3

Llke ArceLa uy made no move Lo dlsmlss Lhe charges agalnsL her on Lhe ground
LhaL 8 8lg 22 was unconsLlLuLlonal uy llkewlse belleved LhaL any move on her
parL Lo quash Lhe lndlcLmenL or Lo dlsmlss Lhe charges on sald ground would fall ln
vlew of Lhe lozooo rullng lnsLead she flled a peLlLlon wlLh Lhls CourL lnvoklng lLs
power of [udlclal revlew Lo have Lhe sald law volded for ConsLlLuLlonal lnflrmlLy
8oLh ArceLa and uy ralse Lhe followlng ldenLlcal lssues for our resoluLlon
a uoes secLlon 1 really penallze Lhe acL of lssulng a check subsequenLly dlshonored
by Lhe bank for lack of funds?
b WhaL ls Lhe effecL lf Lhe dlshonored check ls noL pald pursuanL Lo secLlon 2 of 8
22?
c WhaL ls Lhe effecL lf lL ls so pald?
d uoes secLlon 2 make 8 22 a debL collecLlng law under LhreaL of lmprlsonmenL?
e uoes 8 22 vlolaLe Lhe consLlLuLlonal proscrlpLlon agalnsL lmprlsonmenL for non
paymenL of debL?
f ls 8 22 a valld exerclse of Lhe pollce power of Lhe sLaLe?
6

AfLer mlnuLe scruLlny of peLlLloners' submlsslons we flnd LhaL Lhe baslc lssue belng
ralsed ln Lhese speclal clvll acLlons for cerLlorarl prohlblLlon and mandamus
concern Lhe unconsLlLuLlonallLy or lnvalldlLy of 8 8lg 22 CLherwlse puL Lhe
peLlLlons consLlLuLe an obllque aLLack on Lhe consLlLuLlonallLy of Lhe 8ounclng
Checks Law a maLLer already passed upon by Lhe CourL Lhrough !usLlce (laLer Chlef
!usLlce) edro ?ap almosL Lwo decades ago eLlLloners add however among Lhe
perLlnenL lssues one based on Lhe observable buL worrlsome LransformaLlon of
cerLaln meLropollLan Lrlal courLs lnLo seemlng collecLlon agencles of credlLors
whose complalnLs now clog Lhe courL dockeLs
8uL leL us reLurn Lo baslcs When Lhe lssue of unconsLlLuLlonallLy of a leglslaLlve acL
ls ralsed lL ls Lhe esLabllshed docLrlne LhaL Lhe CourL may exerclse lLs power of
[udlclal revlew only lf Lhe followlng requlslLes are presenL (1) an acLual and
approprlaLe case and conLroversy exlsLs (2) a personal and subsLanLlal lnLeresL of
Lhe parLy ralslng Lhe consLlLuLlonal quesLlon (3) Lhe exerclse of [udlclal revlew ls
pleaded aL Lhe earllesL opporLunlLy and (4) Lhe consLlLuLlonal quesLlon ralsed ls Lhe
very lls moto of Lhe case
7
Cnly when Lhese requlslLes are saLlsfled may Lhe CourL
assume [urlsdlcLlon over a quesLlon of unconsLlLuLlonallLy or lnvalldlLy of an acL of
Congress WlLh due regard Lo counsel's splrlLed advocacy ln boLh cases we are
unable Lo agree LhaL Lhe aboveclLed requlslLes have been adequaLely meL
erusal of Lhese peLlLlons reveals LhaL Lhey are prlmarlly anchored on 8ule 63
SecLlon 1
8
of Lhe 1997 8ules of Clvll rocedure ln a speclal clvll acLlon of cerLlorarl
Lhe only quesLlon LhaL may be ralsed ls wheLher or noL Lhe respondenL has acLed
wlLhouL or ln excess of [urlsdlcLlon or wlLh grave abuse of dlscreLlon
9
?eL nowhere
ln Lhese peLlLlons ls Lhere any allegaLlon LhaL Lhe respondenL [udges acLed wlLh
grave abuse of dlscreLlon amounLlng Lo lack or excess of [urlsdlcLlon A speclal clvll
acLlon for cerLlorarl wlll prosper only lf a grave abuse of dlscreLlon ls manlfesLed
10

noLeworLhy Lhe lnsLanL peLlLlons are consplcuously devold of any aLLachmenLs or
annexes ln Lhe form of a copy of an order declslon or resoluLlon lssued by Lhe
respondenL [udges so as Lo place Lhem undersLandably wlLhln Lhe amblL of 8ule 63
WhaL are appended Lo Lhe peLlLlons are only coples of Lhe lnformaLlons ln Lhe
respecLlve cases noLhlng else LvldenLly Lhese peLlLlons for a wrlL of cerLlorarl
prohlblLlon and mandamus do noL quallfy as Lhe acLual and approprlaLe cases
conLemplaLed by Lhe rules as Lhe flrsL requlslLe for Lhe exerclse of Lhls CourL's
79

power of [udlclal revlew lor as Lhe peLlLlons clearly show on Lhelr faces peLlLloners
have noL come Lo us wlLh sufflclenL cause of acLlon
lnsLead lL appears Lo us LhaL hereln peLlLloners have placed Lhe carL before Lhe
horse flguraLlvely speaklng Slmply puL Lhey have lgnored Lhe hlerarchy of courLs
ouLllned ln 8ule 63 SecLlon 4
11
of Lhe 1997 8ules of Clvll rocedure Seeklng [udlclal
revlew aL Lhe earllesL opporLunlLy does noL mean lmmedlaLely elevaLlng Lhe maLLer
Lo Lhls CourL LarllesL opporLunlLy means LhaL Lhe quesLlon of unconsLlLuLlonallLy of
Lhe acL ln quesLlon should have been lmmedlaLely ralsed ln Lhe proceedlngs ln Lhe
courL below 1hus Lhe peLlLloners should have moved Lo quash Lhe separaLe
lndlcLmenLs or moved Lo dlsmlss Lhe cases ln Lhe proceedlngs ln Lhe Lrlal courLs on
Lhe ground of unconsLlLuLlonallLy of 8 8lg 22 8uL Lhe records show LhaL
peLlLloners falled Lo lnlLlaLe such moves ln Lhe proceedlngs below needless Lo
emphaslze Lhls CourL could noL enLerLaln quesLlons on Lhe lnvalldlLy of a sLaLuLe
where LhaL lssue was noL speclflcally ralsed lnslsLed upon and adequaLely argued
12

1aklng lnLo accounL Lhe early sLage of Lhe Lrlal proceedlngs below Lhe lnsLanL
peLlLlons are paLenLly premaLure
nor do we flnd Lhe consLlLuLlonal quesLlon hereln ralsed Lo be Lhe very lls moto
presenLed ln Lhe conLroversy below Lvery law has ln lLs favor Lhe presumpLlon of
consLlLuLlonallLy and Lo [usLlfy lLs nulllflcaLlon Lhere musL be a clear and
unequlvocal breach of Lhe ConsLlLuLlon and noL one LhaL ls doubLful speculaLlve or
argumenLaLlve
13
We have examlned Lhe conLenLlons of Lhe peLlLloners carefully
buL Lhey sLlll have Lo persuade us LhaL 8 8lg 22 by lLself or ln lLs lmplemenLaLlon
Lransgressed a provlslon of Lhe ConsLlLuLlon Lven Lhe Lhesls of peLlLloner uy LhaL
Lhe presenL economlc and flnanclal crlsls should be a basls Lo declare Lhe 8ounclng
Checks Law consLlLuLlonally lnflrm deserves buL scanL conslderaLlon As we sLressed
ln lozooo lL ls preclsely durlng Lrylng Llmes LhaL Lhere exlsLs a mosL compelllng
reason Lo sLrengLhen falLh and confldence ln Lhe flnanclal sysLem and any pracLlce
Lendlng Lo desLroy confldence ln checks as currency subsLlLuLes should be deLerred
Lo prevenL havoc ln Lhe Lradlng and flnanclal communlLles lurLher whlle lndeed
Lhe meLropollLan Lrlal courLs may be burdened lmmensely by bounclng checks cases
now LhaL facL ls lmmaLerlal Lo Lhe alleged lnvalldlLy of Lhe law belng assalled 1he
soluLlon Lo Lhe clogglng of dockeLs ln lower courLs lles elsewhere
WPL8LlC8L Lhe lnsLanL peLlLlons are ulSMlSSLu for uLLer lack of merlL
SC C8uL8Lu

Gk No 7S983 Apr|| 1S 1988
CkU2 vs LNkILL
nA8vASA I
nobeos cotpos proceedlngs were commenced ln Lhls CourL on CcLober 1 1986
1
Lo
LesL Lhe legallLy of Lhe conLlnued deLenLlon of some 217 socalled pollLlcal
deLalnees
2
arresLed ln Lhe nlneyear span of offlclal marLlal rule and commlLLed Lo
Lhe new 8lllbld rlsons ln MunLlnlupa All had been made Lo sLand Lrlal for common
crlmes
3
before varlous courLs marLlal
4
lf any of Lhese offenses had any pollLlcal
color Lhls had nelLher been pleaded nor proved
Cf Lhe 217 prlsoners 137 are clvlllans and only 26 conflrmed as mlllLary personnel
3
Cne hundred and flfLeen (113) accused had been condemned Lo dle lorLyslx (46)
were senLenced Lo llfe lmprlsonmenL 1o nlne (9) oLhers were meLed prlson Lerms
of from LwenLy Lo LhlrLy years Lo forLyone (41) prlson Lerms of Len Lo LwenLy
years and Lo Lhree (3) less Lhan Len years
1he presenL sLaLus of Lhelr cases are dlsparaLe as mlghL be expecLed As of Lhe daLe
of flllng of Lhe peLlLlons ln Lhls CourL Lhe senLences of slxLyelghL (68) had become
flnal upon Lhelr approval by Lhe Cfflce of Lhe resldenL
6
sevenLyflve (73) cases
were pendlng revlew ln elLher LhaL Cfflce or before Lhe 8oard of MlllLary 8evlew
whlle Lhe appeal or revlew of Lhe remalnlng sevenLyLhree (73) cases elLher had
been expressly suspended pendlng Lhe ouLcome of Lhese peLlLlons or are slmply
noL dealL wlLh ln Lhe records
resldenLlal amnesLy was granLed Lo peLlLloner vlrglllo Ale[andrlno
7
yeL Lo Lhls
daLe he remalns a prlsoner aL Lhe enlLenLlary as do uomlngo 8eyes AnLonlo
umar 1eodoro aLano Andres arado and uanlel Campus alLhough Lhey were
acqulLLed of Lhe charges agalnsL Lhem
8
and 8eynaldo C 8eyes and 8osallno de los
SanLos who appear Lo have fully served Lhe senLences lmposed on Lhem by Lhe
mlllLary commlsslons whlch convlcLed Lhem
9

1he peLlLloners urge Lhe CourL Lo declare unconsLlLuLlonal Lhe esLabllshmenL of all
mlllLary Lrlbunals as well as Ceneral Crder no 8 ordalnlng Lhelr creaLlon and Lhe
nulllLy of all Lhe proceedlngs had agalnsL Lhem before Lhese bodles as a resulL of
whlch Lhey had been lllegally deprlved of Lhelr llberLy 1helr plea ls for Lhe granL of a
reLrlal of Lhelr respecLlve cases ln Lhe clvll courLs where Lhelr rlghL Lo due process
may be accorded respecL
10
1he wrlL of bobeos cotpos lssued on !uly 31 1987 Lwo
weeks afLer an amended peLlLlon
11
was flled wlLh leave of courL relLeraLlng Lhe
argumenLs orlglnally pleaded and seLLlng forLh Lhe addlLlonal clalm LhaL Lhe
pronouncemenL of Lhls CourL of Lhe lack of [urlsdlcLlon of mlllLary Lrlbunals Lo Lry
cases of clvlllans even durlng marLlal rule as declared ln Olopoet et ol vs Mllltoty
commlssloo No J4 et ol
12
enLlLled Lhe peLlLloners Lo be uncondlLlonally freed
from deLenLlon
1he SollclLor Cenerals reLurn of Lhe wrlL ln behalf of Lhe publlc respondenLs sLaLed
LhaL Lhe laLLer offer no ob[ecLlon or opposlLlon Lo Lhe release from deLenLlon of
peLlLlonersclvlllans (whlch) may be lmmedlaLely effecLed unless Lhere are oLher
legal causes LhaL may warranL Lhelr deLenLlon (whlle) Lhe oLher peLlLloners who
are mlllLary personnel x x should noL be released
13
1hls reLurn was shorLly
amended however
14
Lo urge LhaL Lhls CourL Lake a second look and underLake a
Lhorough reexamlnaLlon of Lhe Olopoet declslon suggesLlng Lhe lnappllcablllLy of
Lhe rullng Lo cases lnvolvlng clvlllans charged wlLh and convlcLed of common
crlmes and cases where Lhe deLalned accused have ln effecL fully served Lhe
senLence by Lhelr conLlnued deLenLlon for Lhe duraLlon of Lhe penalLy lmposed
80

Also suggesLed was Lhe glvlng of llmlLed reLroacLlve Lo Lhe declslon conslderlng
Lhe consequences of voldlng earller convlcLlons (such as) 1he granL of lmmunlLy
from prosecuLlon as a resulL of prescrlpLlon or of Lhe SLaLuLe of (L)lmlLaLlons havlng
run wlLnesses havlng been scaLLered and no longer avallable memorles hav(lng)
also been Laxed beyond permlsslble llmlLs and (Lhe annulmenL) of acqulLLal
declslons Lo Lhe greaL pre[udlce of Lhe rlghLs of Lhe accused
13

ln Claquer Lhls CourL ln no uncerLaln Lerms affed LhaL
a mlllLary [urlsdlcLlon or Lrlbunal cannoL Lry and exerclse [urlsdlcLlon even durlng
Lhe perlod of marLlal law over clvlllans for offenses allegedly commlLLed by Lhem as
long as Lhe clvll courLs are open and funcLlonlng and LhaL any [udgmenL rendered
by such body relaLlng Lo a clvlllan ls null and vold for lack of [urlsdlcLlon on Lhe parL
of Lhe mlllLary Lrlbunal concerned (eople v navarro 63 SC8A 264 274 1973) lor
Lhe same reasons Cur pronouncemenL ln Apoloo It v Mllltoty commlssloo No 2
(L3736463 SC8A 346) and all declded cases afflrmlng Lhe same ln so far as Lhey
are lnconslsLenL wlLh Lhls pronouncemenL should be deemed abandoned
16

Such ls Lhe sLaLemenL of Lhe docLrlne squarely appllcable ln Lhese cases
1 Clearly no rlghL Lo rellef under Olopoet exlsLs ln favor of Lhe 26 peLlLloners who
were admlLLedly ln Lhe mlllLary servlce
17
Cver Lhem Lhe courLs marLlal yardly
exerclsed [urlsdlcLlon lL need only be sald LhaL Lhese Lrlbunals were creaLed
preclsely Lo Lry and declde cases of mlllLary personnel and Lhe valldlLy of Ceneral
Crder no 8 ordalnlng Lhelr creaLlon alLhough repeaLedly challenged on
consLlLuLlonal grounds has as many Llmes been upheld by Lhe CourL elLher
expressly or lmplledly
18
As Lo Lhese peLlLloners Lhe wrlL ls Lhus unavalllng
2 ueference Lo Lhe Olopoet declslon lmpels on Lhe oLher hand Lhe appllcaLlon
Lhereof Lo all clvlllans wlLhouL dlsLlncLlon who were haled before mlllLary
Lrlbunals 1o be sure due conslderaLlon was glven Lo Lhe submlLLal LhaL Lhe
docLrlne ls or should be declared as llmlLed ln apllcablllLy Lo pollLlcal of fenders
and noL ordlnary crlmes such as Lhose of whlch Lhe clvlllan peLlLloners were
convlcLed
18
a 8uL dlsLlncLlon should noL be seL where none were clearly lnLended
1he lssue ln Olopoet as here ls Lhe [urlsdlcLlon of courLs marLlal ovet tbe petsoos of
clvlllans and noL merely over Lhe crlmes lmpuLed Lo Lhem regardless of whlch Lhey
are enLlLled Lo Lrlal by [udlclal noL execuLlve or mlllLary process Conformably wlLh
Lhls holdlng Lhe dlsposlLlon of Lhese cases would necessarlly have as a premlse Lhe
lnvalldlLy of any and all proceedlngs had before courLs marLlal agalnsL Lhe clvlllan
peLlLloners 1here ls all Lhe more reason Lo sLrlke down Lhe proceedlngs leadlng Lo
Lhe convlcLlon of Lhese nonpollLlcal deLalnees who should have been broughL
before Lhe courLs of [usLlce ln Lhe flrsL place as Lhelr offenses are LoLally unrelaLed
Lo Lhe lnsurgency avowedly soughL Lo be conLrolled by marLlal rule
uue regard for conslsLency llkewlse dlcLaLes re[ecLlon of Lhe proposal Lo merely glve
prospecLlve effecL Lo Olopoet no dlsLlncLlon should be made as Lhe publlc
respondenLs propose beLween cases sLlll belng Lrled and Lhose flnally declded or
already under revlew All cases musL be LreaLed allke regardless of Lhe sLage Lhey
happen Lo be ln and slnce accordlng Lo Olopoet all proceedlngs before courLs
marLlal ln cases lnvolvlng clvlllans are null and vold Lhe courL deems lL proper Lo
adhere Lo LhaL unequlvocal pronouncemenL percelvlng no cogenL reason Lo devlaLe
from Lhe docLrlne
1he facL cannoL be lgnored however LhaL crlmes appear Lo have been commlLLed
and Lhere are accusaLlons agalnsL hereln peLlLloners for Lhose offenses Olopoet
cannoL and does noL operaLe Lo absolve Lhe peLlLloners of Lhese charges or
esLabllsh LhaL Lhe same are baseless so as Lo enLlLle Lhem Lo lmmedlaLe release
from deLenLlon lL ls noL Lo be forgoLLen LhaL Lhe vlcLlms ln offenses ascrlbed Lo Lhe
peLlLloners have as much lnLeresL as Lhe SLaLe has Lo prosecuLe Lhe alleged auLhors
of Lhe mlsdeeds !usLlce wlll be beLLer served lf Lhe deLenLlon of such of Lhe
peLlLloners as are noL hereby ordered released or excepLed ls conLlnued unLll Lhelr
cases are Lransferred Lo Lhe ordlnary courLs havlng [urlsdlcLlon and Lhe necessary
lnformaLlons have been flled agalnsL Lhem Lhereln as has already been done ln Lhe
case of peLlLloners lmperlal u usman and Samu Cumal
19
1he SLaLe should be glven
a reasonable perlod of Llme Lo accompllsh Lhls Lransfer aL whlch Llme Lhe
peLlLloners may apply for ball for Lhelr Lemporary release
1he SollclLor Ceneral noL unreasonably anLlclpaLes quesLlons Lo arlse as Lo Lhe
avallablllLy of cerLaln defenses Lo Lhe peLlLloners upon Lhelr prosecuLlon before Lhe
clvll courLs lL seems evldenL however LhaL no breach of Lhe consLlLuLlonal
prohlblLlon agalnsL Lwlce puLLlng an accused ln [eopardy of punlshmenL for Lhe
same offense
20
would resulL from Lhe reLrlal of Lhe peLlLloners cases for Lhe
slmple reason LhaL Lhe absence of [urlsdlcLlon of Lhe courLs marLlal Lo Lry and
convlcL Lhe peLlLloners prevenLed Lhe flrsL [eopardy from aLLachlng
21
valld prevlous
proceedlngs are requlred ln order LhaL Lhe defense of double [eopardy can be ralsed
by Lhe accused ln Lhe second prosecuLlon
22

nelLher does Lhe defense of prescrlpLlon appear Lo be avallable Lo Lhe peLlLloners
who excepL for a handful were charged wlLh offenses punlshable by deaLh or
teclosloo petpetoo whlch prescrlbe ln LwenLy years
23
Lven Lhe few noL so charged
cannoL ralse such defense slnce Lhe flllng of Lhe flrsL lndlcLmenLs suspended Lhe
runnlng of Lhe prescrlpLlve perlod and Lhe prosecuLlons under Lhe lnformaLlons Lo
be flled should be regarded as mere conLlnuaLlons of Lhe prevlous proceedlngs
24

AL Lhe very leasL Lhe flllng of Lhe flrsL charges should be consldered as havlng
lnLerrupLed Lhe prescrlpLlve perlod noLwlLhsLandlng Lhe lack of [urlsdlcLlon of Lhe
mlllLary Lrlbunal ln whlch Lhey were flled applylng by analogy Lhe rullng ln leople
vs Olotte
23

ln flne Lhe CourL holds LhaL Lhe merlLs of Lhe lndlcLmenLs agalnsL all Lhese clvlllans
are solely for Lhe clvll courLs Lo welgh and declde upon afLer due proceedlngs
CLherwlse sLaLed Lhey are enLlLled Lo Lhe reLrlal Lhey have expllclLly requesLed of
Lhelr respecLlve cases ln Lhe clvll courLs
WPL8LlC8L Lhe peLlLlon ls hereby granLed lnsofar as peLlLloners verglllo
Ale[andrlno
26
uomlngo 8eyes AnLonlo umar 1eodoro aLono Andres arado uel
81

Campus
27
8eynaldo C 8eyes and 8osallno de los SanLos
28
are concerned 1he
ulrecLor of Lhe 8ureau of rlsons ls hereby ordered Lo effecL Lhe lmmedlaLe release
of Lhe abovemenLloned peLlLloners unless Lhere are oLher legal causes LhaL may
warranL Lhelr deLenLlon
1he peLlLlon ls ulSMlSSLu as Lo peLlLloners Llpldlo Cacho Wllllam Lorenzana
8enlgno 8anLollno CeLullo 8 8raga !r 1omas C AmarLe 8ogello L Carlcungan
LrnesLo 8aradlel lsabelo narne Lrlc l lchay ablo Calle[o 8ussel A aullno
Laurel Lamaca 1lrso l 8ala CallxLo Somera Ldullno Lacslna (urafLee) 8onnle A
Cellz Llpldlo urbano Sofronlo Calo Aqulllno Leyran Leopoldo Arcadlo 8olando
1udln 8osendo l 8amos aclflca 8aLacan LdllberLo LlberaLo !lmmy C 8ealls
uemocrlLo Lorana who are all mlllLary personnel
As Lo Lhe oLher peLlLloners Lhe ueparLmenL of !usLlce ls hereby ul8LC1Lu 1C llLL
Lhe necessary lnformaLlons agalnsL Lhem ln Lhe courLs havlng [urlsdlcLlon over Lhe
offenses lnvolved wlLhln one hundred elghLy (180) days from noLlce of Lhls
declslon wlLhouL pre[udlce Lo Lhe reproducLlon of Lhe evldence submlLLed by Lhe
parLles and admlLLed by Lhe MlllLary Commlsslon lf evenLually convlcLed Lhe
perlod of Lhe peLlLloners deLenLlon shall be credlLed ln Lhelr favor
1he CourLs whereln Lhe necessary lnformaLlons are flled are ul8LC1Lu 1C
CCnuuC1 wlLh dlspaLch Lhe necessary proceedlngs lncluslve of Lhose for Lhe granL
of ball whlch may be lnlLlaLed by Lhe accused
SC C8uL8Lu
1eebookee cI op letooo Meleoclonetteto ctoz lotos lellclooo Coocoyco
loJlllo 8lJlo 5otmleoto cottes ooJ CtloApoloo II coocot

kL9U8LIC VS CA
Gk No 79732 November 8 1993

vl1uC I
1he 8epubllc of Lhe hlllpplnes has soughL Lhe exproprlaLlon of cerLaln porLlons of
land owned by Lhe prlvaLe respondenLs for Lhe wldenlng and concreLlng of Lhe
nabua8aLoAgos SecLlon hlllpplne!apan Plghway Loan (!PL) road Whlle Lhe
rlghL of Lhe 8epubllc ls noL now dlspuLed Lhe prlvaLe respondenLs however
demand LhaL Lhe [usL compensaLlon for Lhe properLy should be based on falr markeL
value and noL LhaL seL by resldenLlal uecree no 76 as amended whlch flxes
paymenL on Lhe basls of Lhe assessmenL by Lhe assessor or Lhe declared valuaLlon
by Lhe owner whlchever ls lower 1he 8eglonal 1rlal CourL ruled for Lhe prlvaLe
respondenLs When elevaLed Lo lL Lhe CourL of Appeals afflrmed Lhe Lrlal courLs
declslon
Pence Lhe lnsLanL peLlLlon by Lhe 8epubllc
ln xpott ltocessloq 2ooe Aotbotlty (l2A) vs uoloy etc et ol
1
Lhls CourL held
Lhe deLermlnaLlon of [usL compensaLlon ln emlnenL domaln Lo be a [udlclal funcLlon
and lL Lhereby declared resldenLlal uecree no 76 as well as relaLed decrees
lncludlng resldenLlal uecree no 1333 Lo Lhe conLrary exLenL as unconsLlLuLlonal
and as an lmpermlsslble encroachmenL of [udlclal prerogaLlves 1he rullng now
conceded by Lhe 8epubllc was relLeraLed ln subsequenL cases
2

1he peLlLlon for revlew desplLe Lhe aforesald pronouncemenL by Lhls CourL has
been glven due course upon Lhe pleas of Lhe SollclLor Ceneral Lo have us address
Lhe followlng concerns
l
LllLC1 Cl !uulClAL uLCLA8A1lCn Cl u 1333 AS unCCnS1l1u1lCnAL Anu vClu
u 1C WPLn 8L18CAC1lvLL? LllLC1 Cn A LnulnC ALALLu CASL WPL8L
CCnS1l1u1lCnALl1? Cl u 1333 nC1 ASSAlLLu 8LlC8L CCu81 A OuO
ll
WPL1PL8 C8 nC1 1PL uLClSlCn Cl 1PlS nONOkA8l cOuk1 lN l2A v5 nON
uulA 1c 1 Al (C8 nC 39603 A8lL 29 1987) uLCLA8lnC u 1333
unCCnS1l1u1lCnAL Anu vClu 8L ALlLu ln 1PlS CASL
lll
WPL1PL8 C8 nC1 vALuA1lCn Cl LAnu SCuCP1 lC8 Lx8C8lA1lCn AS
ALA8lnC Cn 1PL 1Ax uLCLA8A1lCn 8L uSLu AS 8LLlMlnA8? 8ASlS lC8 1PL
1Ln L8 CLn1 (10) uLCSl1 8LCul8Lu unuL8 8uLL 67 Cl 1PL 8LvlSLu 8uLLS Cl
CCu81 AS AMLnuLu 8LlC8L LAln1lll lS L8Ml11Lu Ln18? 1PL8LCn
1he lasL lLem ls noL an lssue belng merely provlslonal ln characLer Lhe maLLer has
noL been quesLloned by Lhe prlvaLe respondenLs
3
We wlll Lhus llmlL ourselves Lo
Lhe flrsL Lwo lssues whlch ln Lurn really boll down Lo wheLher Lhe declaraLlon of
nulllLy of Lhe law ln quesLlon should have prospecLlve noL reLroacLlve appllcaLlon
1he peLlLloner proposes Lhe afflrmaLlve
lnsLrucLlon ls Lhe brlef LreaLlse made by Mr !usLlce lsaganl A Cruz whose words we
quoLe
1here are Lwo vlews on Lhe effecLs of a declaraLlon of Lhe unconsLlLuLlonallLy of a
sLaLuLe
1he flrsL ls Lhe ottboJox vlew under Lhls rule as announced ln Nottoo v 5belby an
unconsLlLuLlonal acL ls noL a law lL confers no rlghL lL lmposes no duLles lL affords
no proLecLlon lL creaLes no offlce lL ls ln legal conLemplaLlon lnoperaLlve as lf lL
had noL been passed lL ls Lherefore sLrlcken from Lhe sLaLuLe books and consldered
never Lo have exlsLed aL all noL only Lhe parLles buL all persons are bound by Lhe
declaraLlon of unconsLlLuLlonallLy whlch means LhaL no one may LhereafLer lnvoke
lL nor may Lhe courLs be permlLLed Lo apply lL ln subsequenL cases lL ls ln oLher
words a LoLal nulllLy
1he second or moJeto vlew ls less sLrlngenL under Lhls vlew Lhe courL ln passlng
upon Lhe quesLlon of consLlLuLlonallLy does noL annul or repeal Lhe sLaLuLe lf lL flnds
lL ln confllcL wlLh Lhe ConsLlLuLlon lL slmply refuses Lo recognlze lL and deLermlnes
Lhe rlghLs of Lhe parLles [usL as lf such sLaLuLe had no exlsLence 1he courL may glve
lLs reasons for lgnorlng or dlsregardlng Lhe law buL Lhe declslon affecLs Lhe parLles
only and Lhere ls no [udgmenL agalnsL Lhe sLaLuLe 1he oplnlon or reasons of Lhe
82

courL may operaLe as a precedenL for Lhe deLermlnaLlon of oLher slmllar cases buL
lL does noL sLrlke Lhe sLaLuLe from Lhe sLaLuLe books lL does noL repeal supersede
revoke or annul Lhe sLaLuLe 1he parLles Lo Lhe sulL are concluded by Lhe [udgmenL
buL no one else ls bound
1he orLhodox vlew ls expressed ln ArLlcle 7 of Lhe Clvll Code provldlng LhaL when
Lhe courLs declare a law Lo be lnconslsLenL wlLh Lhe ConsLlLuLlon Lhe former shall
be vold and Lhe laLLer shall govern
4

1he sLrlcL vlew conslders a leglslaLlve enacLmenL whlch ls declared unconsLlLuLlonal
as belng for all legal lnLenLs and purposes a LoLal nulllLy and lL ls deemed as lf had
never exlsLed Pere of course we refer Lo Lhe law lLself belng pet se repugnanL Lo
Lhe ConsLlLuLlon lL ls noL always Lhe case however LhaL a law ls consLlLuLlonally
faulLy pet se 1hus lL may well be valld ln lLs general lmporL buL lnvalld ln lLs
appllcaLlon Lo cerLaln facLual slLuaLlons 1o exempllfy an oLherwlse valld law may
be held unconsLlLuLlonal only lnsofar as lL ls allowed Lo operaLe reLrospecLlvely such
as ln perLlnenL cases when lL vlLlaLes conLracLually vesLed rlghLs 1o LhaL exLenL lLs
reLroacLlve appllcaLlon may be so declared lnvalld as lmpalrlng Lhe obllgaLlons of
conLracLs
3

A [udlclal declaraLlon of lnvalldlLy lL ls also Lrue may noL necessarlly obllLeraLe all
Lhe effecLs and consequences of a vold acL occurrlng prlor Lo such a declaraLlon
1hus ln our declslons on Lhe motototlom lows
6
we have been consLralned Lo
recognlze Lhe lotetlm effecLs of sald laws prlor Lo Lhelr declaraLlon of
unconsLlLuLlonallLy buL Lhere we have llkewlse been unable Lo slmply lgnore sLrong
conslderaLlons of equlLy and falr play So also even as a pracLlcal maLLer a slLuaLlon
LhaL may apLly be descrlbed as folt occompll may no longer be open for furLher
lnqulry leL alone Lo be unseLLled by a subsequenL declaraLlon of nulllLy of a
governlng sLaLuLe
1he lnsLanL conLroversy however ls Loo far dlsLanL away from any of Lhe above
excepLlonal cases 1o Lhls day Lhe conLroversy beLween Lhe peLlLloner and Lhe
prlvaLe respondenLs on Lhe lssue of [usL compensaLlon ls sLlll unresolved parLly
aLLrlbuLable Lo Lhe lnsLanL peLlLlon LhaL has prevenLed Lhe flnallLy of Lhe declslon
appealed from 1he facL of Lhe maLLer ls LhaL Lhe exproprlaLlon cases lnvolved ln
Lhls lnsLance were sLlll pendlng appeal when Lhe LZA rullng was rendered and
forLhwlLh lnvoked by sald parLles
ln flne we hold LhaL Lhe appellaLe courL ln Lhls parLlcular case commlLLed no error
ln lLs appealed declslon WPL8LlC8L Lhe lnsLanL peLlLlon ls dlsmlssed no cosLs

C9CSA VS IAC1CkAN
Gk No 101083 Iu|y 30 1993
uAvluL !8 I
ln a broader sense Lhls peLlLlon bears upon Lhe rlghL of llllplnos Lo a balanced and
healLhful ecology whlch Lhe peLlLloners dramaLlcally assoclaLe wlLh Lhe Lwln
concepLs of lnLergeneraLlonal responslblllLy and lnLergeneraLlonal [usLlce
Speclflcally lL Louches on Lhe lssue of wheLher Lhe sald peLlLloners have a cause of
acLlon Lo prevenL Lhe mlsapproprlaLlon or lmpalrmenL of hlllpplne ralnforesLs
and arresL Lhe unabaLed hemorrhage of Lhe counLrys vlLal llfe supporL sysLems
and conLlnued rape of MoLher LarLh
1he conLroversy has lLs genesls ln Clvll Case no 9077 whlch was flled before
8ranch 66 (MakaLl MeLro Manlla) of Lhe 8eglonal 1rlal CourL (81C) naLlonal CaplLal
!udlclal 8eglon 1he prlnclpal plalnLlffs Lhereln now Lhe prlnclpal peLlLloners are all
mlnors duly represenLed and [olned by Lhelr respecLlve parenLs lmpleaded as an
addlLlonal plalnLlff ls Lhe hlllpplne Lcologlcal neLwork lnc (Lnl) a domesLlc non
sLock and nonproflL corporaLlon organlzed for Lhe purpose of lotet ollo engaglng
ln concerLed acLlon geared for Lhe proLecLlon of our envlronmenL and naLural
resources 1he orlglnal defendanL was Lhe Ponorable lulgenclo S lacLoran !r Lhen
SecreLary of Lhe ueparLmenL of LnvlronmenL and naLural 8esources (uLn8) Pls
subsLlLuLlon ln Lhls peLlLlon by Lhe new SecreLary Lhe Ponorable Angel C Alcala
was subsequenLly ordered upon proper moLlon by Lhe peLlLloners
1
1he
complalnL
2
was lnsLlLuLed as a Laxpayers class sulL
3
and alleges LhaL Lhe plalnLlffs
are all clLlzens of Lhe 8epubllc of Lhe hlllpplnes Laxpayers and enLlLled Lo Lhe full
beneflL use and en[oymenL of Lhe naLural resource Lreasure LhaL ls Lhe counLrys
vlrgln Lroplcal foresLs 1he same was flled for Lhemselves and oLhers who are
equally concerned abouL Lhe preservaLlon of sald resource buL are so numerous
LhaL lL ls lmpracLlcable Lo brlng Lhem all before Lhe CourL 1he mlnors furLher
asseveraLe LhaL Lhey represenL Lhelr generaLlon as well as generaLlons yeL
unborn
4
ConsequenLly lL ls prayed for LhaL [udgmenL be rendered
orderlng defendanL hls agenLs represenLaLlves and oLher persons acLlng ln hls
behalf Lo
(1) Cancel all exlsLlng Llmber llcense agreemenLs ln Lhe counLry
(2) Cease and deslsL from recelvlng accepLlng processlng renewlng or approvlng
new Llmber llcense agreemenLs
and granLlng Lhe plalnLlffs such oLher rellefs [usL and equlLable under Lhe
premlses
3

1he complalnL sLarLs off wlLh Lhe general avermenLs LhaL Lhe hlllpplne archlpelago
of 7100 lslands has a land area of LhlrLy mllllon (30000000) hecLares and ls
endowed wlLh rlch lush and verdanL ralnforesLs ln whlch varled rare and unlque
specles of flora and fauna may be found Lhese ralnforesLs conLaln a geneLlc
blologlcal and chemlcal pool whlch ls lrreplaceable Lhey are also Lhe hablLaL of
lndlgenous hlllpplne culLures whlch have exlsLed endured and flourlshed slnce
Llme lmmemorlal sclenLlflc evldence reveals LhaL ln order Lo malnLaln a balanced
and healLhful ecology Lhe counLrys land area should be uLlllzed on Lhe basls of a
raLlo of flfLyfour per cenL (34) for foresL cover and forLyslx per cenL (46) for
agrlculLural resldenLlal lndusLrlal commerclal and oLher uses Lhe dlsLorLlon and
dlsLurbance of Lhls balance as a consequence of deforesLaLlon have resulLed ln a
hosL of envlronmenLal Lragedles such as (a) waLer shorLages resulLlng from drylng
83

up of Lhe waLer Lable oLherwlse known as Lhe aqulfer as well as of rlvers brooks
and sLreams (b) sallnlzaLlon of Lhe waLer Lable as a resulL of Lhe lnLruslon Lhereln of
salL waLer lnconLroverLlble examples of whlch may be found ln Lhe lsland of Cebu
and Lhe MunlclpallLy of 8acoor CavlLe (c) masslve eroslon and Lhe consequenLlal
loss of soll ferLlllLy and agrlculLural producLlvlLy wlLh Lhe volume of soll eroded
esLlmaLed aL one bllllon (1000000000) cublc meLers per annum approxlmaLely
Lhe slze of Lhe enLlre lsland of CaLanduanes (d) Lhe endangerlng and exLlncLlon of
Lhe counLrys unlque rare and varled flora and fauna (e) Lhe dlsLurbance and
dlslocaLlon of culLural communlLles lncludlng Lhe dlsappearance of Lhe llllplnos
lndlgenous culLures (f) Lhe sllLaLlon of rlvers and seabeds and consequenLlal
desLrucLlon of corals and oLher aquaLlc llfe leadlng Lo a crlLlcal reducLlon ln marlne
resource producLlvlLy (g) recurrenL spells of droughL as ls presenLly experlenced by
Lhe enLlre counLry (h) lncreaslng veloclLy of Lyphoon wlnds whlch resulL from Lhe
absence of wlndbreakers (l) Lhe floodlngs of lowlands and agrlculLural plalns arlslng
from Lhe absence of Lhe absorbenL mechanlsm of foresLs ([) Lhe sllLaLlon and
shorLenlng of Lhe llfespan of mulLlbllllon peso dams consLrucLed and operaLed for
Lhe purpose of supplylng waLer for domesLlc uses lrrlgaLlon and Lhe generaLlon of
elecLrlc power and (k) Lhe reducLlon of Lhe earLhs capaclLy Lo process carbon
dloxlde gases whlch has led Lo perplexlng and caLasLrophlc cllmaLlc changes such as
Lhe phenomenon of global warmlng oLherwlse known as Lhe greenhouse effecL
lalnLlffs furLher asserL LhaL Lhe adverse and deLrlmenLal consequences of
conLlnued and deforesLaLlon are so capable of unquesLlonable demonsLraLlon LhaL
Lhe same may be submlLLed as a maLLer of [udlclal noLlce 1hls noLwlLhsLandlng
Lhey expressed Lhelr lnLenLlon Lo presenL experL wlLnesses as well as documenLary
phoLographlc and fllm evldence ln Lhe course of Lhe Lrlal
As Lhelr cause of acLlon Lhey speclflcally allege LhaL
cAu5 Ol Ac1lON
7 lalnLlffs replead by reference Lhe foregolng allegaLlons
8 1wenLyflve (23) years ago Lhe hlllpplnes had some slxLeen (16) mllllon hecLares
of ralnforesLs consLlLuLlng roughly 33 of Lhe counLrys land mass
9 SaLelllLe lmages Laken ln 1987 reveal LhaL Lhere remalned no more Lhan 12
mllllon hecLares of sald ralnforesLs or four per cenL (40) of Lhe counLrys land
area
10 More recenL surveys reveal LhaL a mere 830000 hecLares of vlrgln oldgrowLh
ralnforesLs are lefL barely 28 of Lhe enLlre land mass of Lhe hlllpplne archlpelago
and abouL 30 mllllon hecLares of lmmaLure and uneconomlcal secondary growLh
foresLs
11 ubllc records reveal LhaL Lhe defendanLs predecessors have granLed Llmber
llcense agreemenLs (1LAs) Lo varlous corporaLlons Lo cuL Lhe aggregaLe area of
389 mllllon hecLares for commerclal logglng purposes
A copy of Lhe 1LA holders and Lhe correspondlng areas covered ls hereLo aLLached
as Annex A
12 AL Lhe presenL raLe of deforesLaLlon le abouL 200000 hecLares per annum or
23 hecLares per hour nlghLLlme SaLurdays Sundays and holldays lncluded Lhe
hlllpplnes wlll be berefL of foresL resources afLer Lhe end of Lhls ensulng decade lf
noL earller
13 1he adverse effecLs dlsasLrous consequences serlous ln[ury and lrreparable
damage of Lhls conLlnued Lrend of deforesLaLlon Lo Lhe plalnLlff mlnors generaLlon
and Lo generaLlons yeL unborn are evldenL and lnconLroverLlble As a maLLer of facL
Lhe envlronmenLal damages enumeraLed ln paragraph 6 hereof are already belng
felL experlenced and suffered by Lhe generaLlon of plalnLlff adulLs
14 1he conLlnued allowance by defendanL of 1LA holders Lo cuL and deforesL Lhe
remalnlng foresL sLands wlll work greaL damage and lrreparable ln[ury Lo plalnLlffs
especlally plalnLlff mlnors and Lhelr successors who may never see use
beneflL from and en[oy Lhls rare and unlque naLural resource Lreasure
1hls acL of defendanL consLlLuLes a mlsapproprlaLlon and/or lmpalrmenL of Lhe
naLural resource properLy he holds ln LrusL for Lhe beneflL of plalnLlff mlnors and
succeedlng generaLlons
13 lalnLlffs have a clear and consLlLuLlonal rlghL Lo a balanced and healLhful
ecology and are enLlLled Lo proLecLlon by Lhe SLaLe ln lLs capaclLy as Lhe poteos
pottloe
16 lalnLlff have exhausLed all admlnlsLraLlve remedles wlLh Lhe defendanLs offlce
Cn March 2 1990 plalnLlffs served upon defendanL a flnal demand Lo cancel all
logglng permlLs ln Lhe counLry
A copy of Lhe plalnLlffs leLLer daLed March 1 1990 ls hereLo aLLached as Annex 8
17 uefendanL however falls and refuses Lo cancel Lhe exlsLlng 1LAs Lo Lhe
conLlnulng serlous damage and exLreme pre[udlce of plalnLlffs
18 1he conLlnued fallure and refusal by defendanL Lo cancel Lhe 1LAs ls an acL
vlolaLlve of Lhe rlghLs of plalnLlffs especlally plalnLlff mlnors who may be lefL wlLh a
counLry LhaL ls deserLlfled (slc) bare barren and devold of Lhe wonderful flora
fauna and lndlgenous culLures whlch Lhe hlllpplnes had been abundanLly blessed
wlLh
19 uefendanLs refusal Lo cancel Lhe aforemenLloned 1LAs ls manlfesLly conLrary Lo
Lhe publlc pollcy enunclaLed ln Lhe hlllpplne LnvlronmenLal ollcy whlch ln
perLlnenL parL sLaLes LhaL lL ls Lhe pollcy of Lhe SLaLe
(a) Lo creaLe develop malnLaln and lmprove condlLlons under whlch man and
naLure can Lhrlve ln producLlve and en[oyable harmony wlLh each oLher
(b) Lo fulflll Lhe soclal economlc and oLher requlremenLs of presenL and fuLure
generaLlons of llllplnos and
(c) Lo ensure Lhe aLLalnmenL of an envlronmenLal quallLy LhaL ls conducLlve Lo a llfe
of dlgnlLy and wellbelng (u 1131 6 !une 1977)
20 lurLhermore defendanLs conLlnued refusal Lo cancel Lhe aforemenLloned 1LAs
ls conLradlcLory Lo Lhe ConsLlLuLlonal pollcy of Lhe SLaLe Lo
84

a effecL a more equlLable dlsLrlbuLlon of opporLunlLles lncome and wealLh and
make full and efflclenL use of naLural resources (slc) (SecLlon 1 ArLlcle xll of Lhe
ConsLlLuLlon)
b proLecL Lhe naLlons marlne wealLh (SecLlon 2 lblJ)
c conserve and promoLe Lhe naLlons culLural herlLage and resources (slc)
(SecLlon 14 ArLlcle xlvlJ)
d proLecL and advance Lhe rlghL of Lhe people Lo a balanced and healLhful ecology
ln accord wlLh Lhe rhyLhm and harmony of naLure (SecLlon 16 ArLlcle ll lJ)
21 llnally defendanLs acL ls conLrary Lo Lhe hlghesL law of humanklnd Lhe
naLural law and vlolaLlve of plalnLlffs rlghL Lo selfpreservaLlon and perpeLuaLlon
22 1here ls no oLher plaln speedy and adequaLe remedy ln law oLher Lhan Lhe
lnsLanL acLlon Lo arresL Lhe unabaLed hemorrhage of Lhe counLrys vlLal llfe supporL
sysLems and conLlnued rape of MoLher LarLh
6

Cn 22 !une 1990 Lhe orlglnal defendanL SecreLary lacLoran !r flled a MoLlon Lo
ulsmlss Lhe complalnL based on Lwo (2) grounds namely (1) Lhe plalnLlffs have no
cause of acLlon agalnsL hlm and (2) Lhe lssue ralsed by Lhe plalnLlffs ls a pollLlcal
quesLlon whlch properly perLalns Lo Lhe leglslaLlve or execuLlve branches of
CovernmenL ln Lhelr 12 !uly 1990 CpposlLlon Lo Lhe MoLlon Lhe peLlLloners
malnLaln LhaL (1) Lhe complalnL shows a clear and unmlsLakable cause of acLlon (2)
Lhe moLlon ls dllaLory and (3) Lhe acLlon presenLs a [usLlclable quesLlon as lL lnvolves
Lhe defendanLs abuse of dlscreLlon
Cn 18 !uly 1991 respondenL !udge lssued an order granLlng Lhe aforemenLloned
moLlon Lo dlsmlss
7
ln Lhe sald order noL only was Lhe defendanLs clalm LhaL Lhe
complalnL sLaLes no cause of acLlon agalnsL hlm and LhaL lL ralses a pollLlcal quesLlon
susLalned Lhe respondenL !udge furLher ruled LhaL Lhe granLlng of Lhe rellef
prayed for would resulL ln Lhe lmpalrmenL of conLracLs whlch ls prohlblLed by Lhe
fundamenLal law of Lhe land
lalnLlffs Lhus flled Lhe lnsLanL speclal clvll acLlon for cettlototl under 8ule 63 of Lhe
8evlsed 8ules of CourL and ask Lhls CourL Lo resclnd and seL aslde Lhe dlsmlssal
order on Lhe ground LhaL Lhe respondenL !udge gravely abused hls dlscreLlon ln
dlsmlsslng Lhe acLlon Agaln Lhe parenLs of Lhe plalnLlffsmlnors noL only represenL
Lhelr chlldren buL have also [olned Lhe laLLer ln Lhls case
8

Cn 14 May 1992 We resolved Lo glve due course Lo Lhe peLlLlon and requlred Lhe
parLles Lo submlL Lhelr respecLlve Memoranda afLer Lhe Cfflce of Lhe SollclLor
Ceneral (CSC) flled a CommenL ln behalf of Lhe respondenLs and Lhe peLlLloners
flled a reply LhereLo
eLlLloners conLend LhaL Lhe complalnL clearly and unmlsLakably sLaLes a cause of
acLlon as lL conLalns sufflclenL allegaLlons concernlng Lhelr rlghL Lo a sound
envlronmenL based on ArLlcles 19 20 and 21 of Lhe Clvll Code (Puman 8elaLlons)
SecLlon 4 of LxecuLlve Crder (LC) no 192 creaLlng Lhe uLn8 SecLlon 3 of
resldenLlal uecree (u) no 1131 (hlllpplne LnvlronmenLal ollcy) SecLlon 16
ArLlcle ll of Lhe 1987 ConsLlLuLlon recognlzlng Lhe rlghL of Lhe people Lo a balanced
and healLhful ecology Lhe concepL of generaLlonal genoclde ln Crlmlnal Law and Lhe
concepL of mans lnallenable rlghL Lo selfpreservaLlon and selfperpeLuaLlon
embodled ln naLural law eLlLloners llkewlse rely on Lhe respondenLs correlaLlve
obllgaLlon per SecLlon 4 of LC no 192 Lo safeguard Lhe peoples rlghL Lo a
healLhful envlronmenL
lL ls furLher clalmed LhaL Lhe lssue of Lhe respondenL SecreLarys alleged grave
abuse of dlscreLlon ln granLlng 1lmber Llcense AgreemenLs (1LAs) Lo cover more
areas for logglng Lhan whaL ls avallable lnvolves a [udlclal quesLlon
AnenL Lhe lnvocaLlon by Lhe respondenL !udge of Lhe ConsLlLuLlons nonlmpalrmenL
clause peLlLloners malnLaln LhaL Lhe same does noL apply ln Lhls case because 1LAs
are noL conLracLs 1hey llkewlse submlL LhaL even lf 1LAs may be consldered
proLecLed by Lhe sald clause lL ls well seLLled LhaL Lhey may sLlll be revoked by Lhe
SLaLe when Lhe publlc lnLeresL so requlres
Cn Lhe oLher hand Lhe respondenLs aver LhaL Lhe peLlLloners falled Lo allege ln Lhelr
complalnL a speclflc legal rlghL vlolaLed by Lhe respondenL SecreLary for whlch any
rellef ls provlded by law 1hey see noLhlng ln Lhe complalnL buL vague and nebulous
allegaLlons concernlng an envlronmenLal rlghL whlch supposedly enLlLles Lhe
peLlLloners Lo Lhe proLecLlon by Lhe sLaLe ln lLs capaclLy as poteos pottloe Such
allegaLlons accordlng Lo Lhem do noL reveal a valld cause of acLlon 1hey Lhen
relLeraLe Lhe Lheory LhaL Lhe quesLlon of wheLher logglng should be permlLLed ln
Lhe counLry ls a pollLlcal quesLlon whlch should be properly addressed Lo Lhe
execuLlve or leglslaLlve branches of CovernmenL 1hey Lherefore asserL LhaL Lhe
peLlLloners resources ls noL Lo flle an acLlon Lo courL buL Lo lobby before Congress
for Lhe passage of a blll LhaL would ban logglng LoLally
As Lo Lhe maLLer of Lhe cancellaLlon of Lhe 1LAs respondenLs submlL LhaL Lhe same
cannoL be done by Lhe SLaLe wlLhouL due process of law Cnce lssued a 1LA
remalns effecLlve for a cerLaln perlod of Llme usually for LwenLyflve (23) years
uurlng lLs effecLlvlLy Lhe same can nelLher be revlsed nor cancelled unless Lhe
holder has been found afLer due noLlce and hearlng Lo have vlolaLed Lhe Lerms of
Lhe agreemenL or oLher foresLry laws and regulaLlons eLlLloners proposlLlon Lo
have all Lhe 1LAs lndlscrlmlnaLely cancelled wlLhouL Lhe requlslLe hearlng would be
vlolaLlve of Lhe requlremenLs of due process
8efore golng any furLher We musL flrsL focus on some procedural maLLers
eLlLloners lnsLlLuLed Clvll Case no 90777 as a class sulL 1he orlglnal defendanL
and Lhe presenL respondenLs dld noL Lake lssue wlLh Lhls maLLer neverLheless We
hereby rule LhaL Lhe sald clvll case ls lndeed a class sulL 1he sub[ecL maLLer of Lhe
complalnL ls of common and general lnLeresL noL [usL Lo several buL Lo all clLlzens of
Lhe hlllpplnes ConsequenLly slnce Lhe parLles are so numerous lL becomes
lmpracLlcable lf noL LoLally lmposslble Lo brlng all of Lhem before Lhe courL We
llkewlse declare LhaL Lhe plalnLlffs Lhereln are numerous and represenLaLlve enough
Lo ensure Lhe full proLecLlon of all concerned lnLeresLs Pence all Lhe requlslLes for
Lhe flllng of a valld class sulL under SecLlon 12 8ule 3 of Lhe 8evlsed 8ules of CourL
83

are presenL boLh ln Lhe sald clvll case and ln Lhe lnsLanL peLlLlon Lhe laLLer belng
buL an lncldenL Lo Lhe former
1hls case however has a speclal and novel elemenL eLlLloners mlnors asserL LhaL
Lhey represenL Lhelr generaLlon as well as generaLlons yeL unborn We flnd no
dlfflculLy ln rullng LhaL Lhey can for Lhemselves for oLhers of Lhelr generaLlon and
for Lhe succeedlng generaLlons flle a class sulL 1helr personallLy Lo sue ln behalf of
Lhe succeedlng generaLlons can only be based on Lhe concepL of lnLergeneraLlonal
responslblllLy lnsofar as Lhe rlghL Lo a balanced and healLhful ecology ls concerned
Such a rlghL as herelnafLer expounded conslders
Lhe rhyLhm and harmony of naLure naLure means Lhe creaLed world ln lLs
enLlreLy
9
Such rhyLhm and harmony lndlspensably lnclude lotet ollo Lhe [udlclous
dlsposlLlon uLlllzaLlon managemenL renewal and conservaLlon of Lhe counLrys
foresL mlneral land waLers flsherles wlldllfe offshore areas and oLher naLural
resources Lo Lhe end LhaL Lhelr exploraLlon developmenL and uLlllzaLlon be
equlLably accesslble Lo Lhe presenL as well as fuLure generaLlons
10
needless Lo say
every generaLlon has a responslblllLy Lo Lhe nexL Lo preserve LhaL rhyLhm and
harmony for Lhe full en[oymenL of a balanced and healLhful ecology uL a llLLle
dlfferenLly Lhe mlnors asserLlon of Lhelr rlghL Lo a sound envlronmenL consLlLuLes
aL Lhe same Llme Lhe performance of Lhelr obllgaLlon Lo ensure Lhe proLecLlon of
LhaL rlghL for Lhe generaLlons Lo come
1he locos stooJl of Lhe peLlLloners havlng Lhus been addressed We shall now
proceed Lo Lhe merlLs of Lhe peLlLlon
AfLer a careful perusal of Lhe complalnL ln quesLlon and a meLlculous conslderaLlon
and evaluaLlon of Lhe lssues ralsed and argumenLs adduced by Lhe parLles We do
noL heslLaLe Lo flnd for Lhe peLlLloners and rule agalnsL Lhe respondenL !udges
challenged order for havlng been lssued wlLh grave abuse of dlscreLlon amounLlng
Lo lack of [urlsdlcLlon 1he perLlnenL porLlons of Lhe sald order reads as follows
xxx xxx xxx
AfLer a careful and clrcumspecL evaluaLlon of Lhe ComplalnL Lhe CourL cannoL help
buL agree wlLh Lhe defendanL lor alLhough we belleve LhaL plalnLlffs have buL Lhe
noblesL of all lnLenLlons lL (slc) fell shorL of alleglng wlLh sufflclenL deflnlLeness a
speclflc legal rlghL Lhey are seeklng Lo enforce and proLecL or a speclflc legal wrong
Lhey are seeklng Lo prevenL and redress (Sec 1 8ule 2 88C) lurLhermore Lhe
CourL noLes LhaL Lhe ComplalnL ls repleLe wlLh vague assumpLlons and vague
concluslons based on unverlfled daLa ln flne plalnLlffs fall Lo sLaLe a cause of acLlon
ln lLs ComplalnL agalnsL Lhe hereln defendanL
lurLhermore Lhe CourL flrmly belleves LhaL Lhe maLLer before lL belng lmpressed
wlLh pollLlcal color and lnvolvlng a maLLer of publlc pollcy may noL be Laken
cognlzance of by Lhls CourL wlLhouL dolng vlolence Lo Lhe sacred prlnclple of
SeparaLlon of owers of Lhe Lhree (3) coequal branches of Lhe CovernmenL
1he CourL ls llkewlse of Lhe lmpresslon LhaL lL cannoL no maLLer how we sLreLch our
[urlsdlcLlon granL Lhe rellefs prayed for by Lhe plalnLlffs le Lo cancel all exlsLlng
Llmber llcense agreemenLs ln Lhe counLry and Lo cease and deslsL from recelvlng
accepLlng processlng renewlng or approvlng new Llmber llcense agreemenLs lor
Lo do oLherwlse would amounL Lo lmpalrmenL of conLracLs abhored (slc) by Lhe
fundamenLal law
11

We do noL agree wlLh Lhe Lrlal courLs concluslons LhaL Lhe plalnLlffs falled Lo allege
wlLh sufflclenL deflnlLeness a speclflc legal rlghL lnvolved or a speclflc legal wrong
commlLLed and LhaL Lhe complalnL ls repleLe wlLh vague assumpLlons and
concluslons based on unverlfled daLa A readlng of Lhe complalnL lLself belles Lhese
concluslons
1he complalnL focuses on one speclflc fundamenLal legal rlghL Lhe rlghL Lo a
balanced and healLhful ecology whlch for Lhe flrsL Llme ln our naLlons
consLlLuLlonal hlsLory ls solemnly lncorporaLed ln Lhe fundamenLal law SecLlon 16
ArLlcle ll of Lhe 1987 ConsLlLuLlon expllclLly provldes
Sec 16 1he SLaLe shall proLecL and advance Lhe rlghL of Lhe people Lo a balanced
and healLhful ecology ln accord wlLh Lhe rhyLhm and harmony of naLure
1hls rlghL unlLes wlLh Lhe rlghL Lo healLh whlch ls provlded for ln Lhe precedlng
secLlon of Lhe same arLlcle
Sec 13 1he SLaLe shall proLecL and promoLe Lhe rlghL Lo healLh of Lhe people and
lnsLlll healLh consclousness among Lhem
Whlle Lhe rlghL Lo a balanced and healLhful ecology ls Lo be found under Lhe
ueclaraLlon of rlnclples and SLaLe ollcles and noL under Lhe 8lll of 8lghLs lL does
noL follow LhaL lL ls less lmporLanL Lhan any of Lhe clvll and pollLlcal rlghLs
enumeraLed ln Lhe laLLer Such a rlghL belongs Lo a dlfferenL caLegory of rlghLs
alLogeLher for lL concerns noLhlng less Lhan selfpreservaLlon and selfperpeLuaLlon
apLly and flLLlngly sLressed by Lhe peLlLloners Lhe advancemenL of whlch may
even be sald Lo predaLe all governmenLs and consLlLuLlons As a maLLer of facL
Lhese baslc rlghLs need noL even be wrlLLen ln Lhe ConsLlLuLlon for Lhey are
assumed Lo exlsL from Lhe lncepLlon of humanklnd lf Lhey are now expllclLly
menLloned ln Lhe fundamenLal charLer lL ls because of Lhe wellfounded fear of lLs
framers LhaL unless Lhe rlghLs Lo a balanced and healLhful ecology and Lo healLh are
mandaLed as sLaLe pollcles by Lhe ConsLlLuLlon lLself Lhereby hlghllghLlng Lhelr
conLlnulng lmporLance and lmposlng upon Lhe sLaLe a solemn obllgaLlon Lo preserve
Lhe flrsL and proLecL and advance Lhe second Lhe day would noL be Loo far when all
else would be losL noL only for Lhe presenL generaLlon buL also for Lhose Lo come
generaLlons whlch sLand Lo lnherlL noLhlng buL parched earLh lncapable of
susLalnlng llfe
1he rlghL Lo a balanced and healLhful ecology carrles wlLh lL Lhe correlaLlve duLy Lo
refraln from lmpalrlng Lhe envlronmenL uurlng Lhe debaLes on Lhls rlghL ln one of
Lhe plenary sesslons of Lhe 1986 ConsLlLuLlonal Commlsslon Lhe followlng exchange
Lransplred beLween Commlssloner Wllfrldo vlllacorLa and Commlssloner Adolfo
Azcuna who sponsored Lhe secLlon ln quesLlon
M8 vlLLACC81A
86

uoes Lhls secLlon mandaLe Lhe SLaLe Lo provlde sancLlons agalnsL all forms of
polluLlon alr waLer and nolse polluLlon?
M8 AZCunA
?es Madam resldenL 1he rlghL Lo healLhful (slc) envlronmenL necessarlly carrles
wlLh lL Lhe correlaLlve duLy of noL lmpalrlng Lhe same and Lherefore sancLlons may
be provlded for lmpalrmenL of envlronmenLal balance
12

1he sald rlghL lmplles among many oLher Lhlngs Lhe [udlclous managemenL and
conservaLlon of Lhe counLrys foresLs
WlLhouL such foresLs Lhe ecologlcal or envlronmenLal balance would be lrreverslby
dlsrupLed
Conformably wlLh Lhe enunclaLed rlghL Lo a balanced and healLhful ecology and Lhe
rlghL Lo healLh as well as Lhe oLher relaLed provlslons of Lhe ConsLlLuLlon
concernlng Lhe conservaLlon developmenL and uLlllzaLlon of Lhe counLrys naLural
resources
13
Lhen resldenL Corazon C Aqulno promulgaLed on 10 !une 1987 LC
no 192
14
SecLlon 4 of whlch expressly mandaLes LhaL Lhe ueparLmenL of
LnvlronmenL and naLural 8esources shall be Lhe prlmary governmenL agency
responslble for Lhe conservaLlon managemenL developmenL and proper use of Lhe
counLrys envlronmenL and naLural resources speclflcally foresL and grazlng lands
mlneral resources lncludlng Lhose ln reservaLlon and waLershed areas and lands of
Lhe publlc domaln as well as Lhe llcenslng and regulaLlon of all naLural resources as
may be provlded for by law ln order Lo ensure equlLable sharlng of Lhe beneflLs
derlved Lherefrom for Lhe welfare of Lhe presenL and fuLure generaLlons of
llllplnos SecLlon 3 Lhereof makes Lhe followlng sLaLemenL of pollcy
Sec 3 ueclototloo of lollcy lL ls hereby declared Lhe pollcy of Lhe SLaLe Lo
ensure Lhe susLalnable use developmenL managemenL renewal and conservaLlon
of Lhe counLrys foresL mlneral land offshore areas and oLher naLural resources
lncludlng Lhe proLecLlon and enhancemenL of Lhe quallLy of Lhe envlronmenL and
equlLable access of Lhe dlfferenL segmenLs of Lhe populaLlon Lo Lhe developmenL
and Lhe use of Lhe counLrys naLural resources noL only for Lhe presenL generaLlon
buL for fuLure generaLlons as well lL ls also Lhe pollcy of Lhe sLaLe Lo recognlze and
apply a Lrue value sysLem lncludlng soclal and envlronmenLal cosL lmpllcaLlons
relaLlve Lo Lhelr uLlllzaLlon developmenL and conservaLlon of our naLural resources
1hls pollcy declaraLlon ls subsLanLlally resLaLed lL 1lLle xlv 8ook lv of Lhe
AdmlnlsLraLlve Code of 1987
13
speclflcally ln SecLlon 1 Lhereof whlch reads
Sec 1 ueclototloo of lollcy (1) 1he SLaLe shall ensure for Lhe beneflL of Lhe
llllplno people Lhe full exploraLlon and developmenL as well as Lhe [udlclous
dlsposlLlon uLlllzaLlon managemenL renewal and conservaLlon of Lhe counLrys
foresL mlneral land waLers flsherles wlldllfe offshore areas and oLher naLural
resources conslsLenL wlLh Lhe necesslLy of malnLalnlng a sound ecologlcal balance
and proLecLlng and enhanclng Lhe quallLy of Lhe envlronmenL and Lhe ob[ecLlve of
maklng Lhe exploraLlon developmenL and uLlllzaLlon of such naLural resources
equlLably accesslble Lo Lhe dlfferenL segmenLs of Lhe presenL as well as fuLure
generaLlons
(2) 1he SLaLe shall llkewlse recognlze and apply a Lrue value sysLem LhaL Lakes lnLo
accounL soclal and envlronmenLal cosL lmpllcaLlons relaLlve Lo Lhe uLlllzaLlon
developmenL and conservaLlon of our naLural resources
1he above provlslon sLresses Lhe necesslLy of malnLalnlng a sound ecologlcal
balance and proLecLlng and enhanclng Lhe quallLy of Lhe envlronmenL SecLlon 2 of
Lhe same 1lLle on Lhe oLher hand speclflcally speaks of Lhe mandaLe of Lhe uLn8
however lL makes parLlcular reference Lo Lhe facL of Lhe agencys belng sub[ecL Lo
law and hlgher auLhorlLy Sald secLlon provldes
Sec 2 MooJote (1) 1he ueparLmenL of LnvlronmenL and naLural 8esources
shall be prlmarlly responslble for Lhe lmplemenLaLlon of Lhe foregolng pollcy
(2) lL shall sub[ecL Lo law and hlgher auLhorlLy be ln charge of carrylng ouL Lhe
SLaLes consLlLuLlonal mandaLe Lo conLrol and supervlse Lhe exploraLlon
developmenL uLlllzaLlon and conservaLlon of Lhe counLrys naLural resources
8oLh LC nC 192 and Lhe AdmlnlsLraLlve Code of 1987 have seL Lhe ob[ecLlves
whlch wlll serve as Lhe bases for pollcy formulaLlon and have deflned Lhe powers
and funcLlons of Lhe uLn8
lL may however be recalled LhaL even before Lhe raLlflcaLlon of Lhe 1987
ConsLlLuLlon speclflc sLaLuLes already pald speclal aLLenLlon Lo Lhe envlronmenLal
rlghL of Lhe presenL and fuLure generaLlons Cn 6 !une 1977 u no 1131
(hlllpplne LnvlronmenLal ollcy) and u no 1132 (hlllpplne LnvlronmenL Code)
were lssued 1he former declared a conLlnulng pollcy of Lhe SLaLe (a) Lo creaLe
develop malnLaln and lmprove condlLlons under whlch man and naLure can Lhrlve
ln producLlve and en[oyable harmony wlLh each oLher (b) Lo fulflll Lhe soclal
economlc and oLher requlremenLs of presenL and fuLure generaLlons of llllplnos
and (c) Lo lnsure Lhe aLLalnmenL of an envlronmenLal quallLy LhaL ls conduclve Lo a
llfe of dlgnlLy and wellbelng
16
As lLs goal lL speaks of Lhe responslblllLles of each
generaLlon as LrusLee and guardlan of Lhe envlronmenL for succeedlng
generaLlons
17
1he laLLer sLaLuLe on Lhe oLher hand gave flesh Lo Lhe sald pollcy
1hus Lhe rlghL of Lhe peLlLloners (and all Lhose Lhey represenL) Lo a balanced and
healLhful ecology ls as clear as Lhe uLn8s duLy under lLs mandaLe and by vlrLue
of lLs powers and funcLlons under LC no 192 and Lhe AdmlnlsLraLlve Code of 1987
Lo proLecL and advance Lhe sald rlghL
A denlal or vlolaLlon of LhaL rlghL by Lhe oLher who has Lhe corelaLlve duLy or
obllgaLlon Lo respecL or proLecL Lhe same glves rlse Lo a cause of acLlon eLlLloners
malnLaln LhaL Lhe granLlng of Lhe 1LAs whlch Lhey clalm was done wlLh grave abuse
of dlscreLlon vlolaLed Lhelr rlghL Lo a balanced and healLhful ecology hence Lhe full
proLecLlon Lhereof requlres LhaL no furLher 1LAs should be renewed or granLed
A cause of acLlon ls deflned as
an acL or omlsslon of one parLy ln vlolaLlon of Lhe legal rlghL or rlghLs of Lhe
oLher and lLs essenLlal elemenLs are legal rlghL of Lhe plalnLlff correlaLlve
87

obllgaLlon of Lhe defendanL and acL or omlsslon of Lhe defendanL ln vlolaLlon of
sald legal rlghL
18

lL ls seLLled ln Lhls [urlsdlcLlon LhaL ln a moLlon Lo dlsmlss based on Lhe ground LhaL
Lhe complalnL falls Lo sLaLe a cause of acLlon
19
Lhe quesLlon submlLLed Lo Lhe courL
for resoluLlon lnvolves Lhe sufflclency of Lhe facLs alleged ln Lhe complalnL lLself no
oLher maLLer should be consldered furLhermore Lhe LruLh of falslLy of Lhe sald
allegaLlons ls beslde Lhe polnL for Lhe LruLh Lhereof ls deemed hypoLheLlcally
admlLLed 1he only lssue Lo be resolved ln such a case ls admlLLlng such alleged
facLs Lo be Lrue may Lhe courL render a valld [udgmenL ln accordance wlLh Lhe
prayer ln Lhe complalnL?
20
ln Mllltoote vs Jtosolooo
21
Lhls CourL lald down Lhe
rule LhaL Lhe [udlclary should exerclse Lhe uLmosL care and clrcumspecLlon ln
passlng upon a moLlon Lo dlsmlss on Lhe ground of Lhe absence Lhereof cause of
acLlon lesL by lLs fallure Lo manlfesL a correcL appreclaLlon of Lhe facLs alleged and
deemed hypoLheLlcally admlLLed whaL Lhe law granLs or recognlzes ls effecLlvely
nulllfled lf LhaL happens Lhere ls a bloL on Lhe legal order 1he law lLself sLands ln
dlsrepuLe
AfLer careful examlnaLlon of Lhe peLlLloners complalnL We flnd Lhe sLaLemenLs
under Lhe lnLroducLory afflrmaLlve allegaLlons as well as Lhe speclflc avermenLs
under Lhe subheadlng CAuSL Cl AC1lCn Lo be adequaLe enough Lo show ptlmo
focle Lhe clalmed vlolaLlon of Lhelr rlghLs Cn Lhe basls Lhereof Lhey may Lhus be
granLed wholly or parLly Lhe rellefs prayed for lL bears sLresslng however LhaL
lnsofar as Lhe cancellaLlon of Lhe 1LAs ls concerned Lhere ls Lhe need Lo lmplead as
parLy defendanLs Lhe granLees Lhereof for Lhey are lndlspensable parLles
1he foregolng consldered Clvll Case no 90777 be sald Lo ralse a pollLlcal quesLlon
ollcy formulaLlon or deLermlnaLlon by Lhe execuLlve or leglslaLlve branches of
CovernmenL ls noL squarely puL ln lssue WhaL ls prlnclpally lnvolved ls Lhe
enforcemenL of a rlghL vlsovls pollcles already formulaLed and expressed ln
leglslaLlon lL musL noneLheless be emphaslzed LhaL Lhe pollLlcal quesLlon docLrlne
ls no longer Lhe lnsurmounLable obsLacle Lo Lhe exerclse of [udlclal power or Lhe
lmpeneLrable shleld LhaL proLecLs execuLlve and leglslaLlve acLlons from [udlclal
lnqulry or revlew 1he second paragraph of secLlon 1 ArLlcle vlll of Lhe ConsLlLuLlon
sLaLes LhaL
!udlclal power lncludes Lhe duLy of Lhe courLs of [usLlce Lo seLLle acLual
conLroversles lnvolvlng rlghLs whlch are legally demandable and enforceable and Lo
deLermlne wheLher or noL Lhere has been a grave abuse of dlscreLlon amounLlng Lo
lack or excess of [urlsdlcLlon on Lhe parL of any branch or lnsLrumenLallLy of Lhe
CovernmenL
CommenLlng on Lhls provlslon ln hls book lblllpploe lolltlcol low
22
Mr !usLlce
lsaganl A Cruz a dlsLlngulshed member of Lhls CourL says
1he flrsL parL of Lhe auLhorlLy represenLs Lhe LradlLlonal concepL of [udlclal power
lnvolvlng Lhe seLLlemenL of confllcLlng rlghLs as conferred as law 1he second parL of
Lhe auLhorlLy represenLs a broadenlng of [udlclal power Lo enable Lhe courLs of
[usLlce Lo revlew whaL was before forbldden LerrlLory Lo wlL Lhe dlscreLlon of Lhe
pollLlcal deparLmenLs of Lhe governmenL
As worded Lhe new provlslon vesLs ln Lhe [udlclary and parLlcularly Lhe Supreme
CourL Lhe power Lo rule upon even Lhe wlsdom of Lhe declslons of Lhe execuLlve
and Lhe leglslaLure and Lo declare Lhelr acLs lnvalld for lack or excess of [urlsdlcLlon
because LalnLed wlLh grave abuse of dlscreLlon 1he caLch of course ls Lhe meanlng
of grave abuse of dlscreLlon whlch ls a very elasLlc phrase LhaL can expand or
conLracL accordlng Lo Lhe dlsposlLlon of Lhe [udlclary
ln uozo vs 5loqsoo
23
Mr !usLlce Cruz now speaklng for Lhls CourL noLed
ln Lhe case now before us Lhe [urlsdlcLlonal ob[ecLlon becomes even less Lenable
and declslve 1he reason ls LhaL even lf we were Lo assume LhaL Lhe lssue presenLed
before us was pollLlcal ln naLure we would sLlll noL be precluded from revolvlng lL
under Lhe expanded [urlsdlcLlon conferred upon us LhaL now covers ln proper
cases even Lhe pollLlcal quesLlon ArLlcle vll SecLlon 1 of Lhe ConsLlLuLlon clearly
provldes
1he lasL ground lnvoked by Lhe Lrlal courL ln dlsmlsslng Lhe complalnL ls Lhe non
lmpalrmenL of conLracLs clause found ln Lhe ConsLlLuLlon 1he courL o poo declared
LhaL
1he CourL ls llkewlse of Lhe lmpresslon LhaL lL cannoL no maLLer how we sLreLch our
[urlsdlcLlon granL Lhe rellefs prayed for by Lhe plalnLlffs le Lo cancel all exlsLlng
Llmber llcense agreemenLs ln Lhe counLry and Lo cease and deslsL from recelvlng
accepLlng processlng renewlng or approvlng new Llmber llcense agreemenLs lor
Lo do oLherwlse would amounL Lo lmpalrmenL of conLracLs abhored (slc) by Lhe
fundamenLal law
24

We are noL persuaded aL all on Lhe conLrary We are amazed lf noL shocked by
such a sweeplng pronouncemenL ln Lhe flrsL place Lhe respondenL SecreLary dld
noL for obvlous reasons even lnvoke ln hls moLlon Lo dlsmlss Lhe nonlmpalrmenL
clause lf he had done so he would have acLed wlLh uLmosL lnfldellLy Lo Lhe
CovernmenL by provldlng undue and unwarranLed beneflLs and advanLages Lo Lhe
Llmber llcense holders because he would have forever bound Lhe CovernmenL Lo
sLrlcLly respecL Lhe sald llcenses accordlng Lo Lhelr Lerms and condlLlons regardless
of changes ln pollcy and Lhe demands of publlc lnLeresL and welfare Pe was aware
LhaL as correcLly polnLed ouL by Lhe peLlLloners lnLo every Llmber llcense musL be
read SecLlon 20 of Lhe loresLry 8eform Code (u no 703) whlch provldes
ltovlJeJ 1haL when Lhe naLlonal lnLeresL so requlres Lhe resldenL may
amend modlfy replace or resclnd any conLracL concesslon permlL llcenses or any
oLher form of prlvllege granLed hereln
needless Lo say all llcenses may Lhus be revoked or resclnded by execuLlve acLlon
lL ls noL a conLracL properLy or a properLy rlghL proLesLed by Lhe due process clause
of Lhe ConsLlLuLlon ln 1oo vs ultectot of lotestty
23
Lhls CourL held
A Llmber llcense ls an lnsLrumenL by whlch Lhe SLaLe regulaLes Lhe uLlllzaLlon and
dlsposlLlon of foresL resources Lo Lhe end LhaL publlc welfare ls promoLed A Llmber
88

llcense ls noL a conLracL wlLhln Lhe purvlew of Lhe due process clause lL ls only a
llcense or prlvllege whlch can be valldly wlLhdrawn whenever dlcLaLed by publlc
lnLeresL or publlc welfare as ln Lhls case
A llcense ls merely a permlL or prlvllege Lo do whaL oLherwlse would be unlawful
and ls noL a conLracL beLween Lhe auLhorlLy federal sLaLe or munlclpal granLlng lL
and Lhe person Lo whom lL ls granLed nelLher ls lL properLy or a properLy rlghL nor
does lL creaLe a vesLed rlghL nor ls lL LaxaLlon (37 C! 168) 1hus Lhls CourL held
LhaL Lhe granLlng of llcense does noL creaLe lrrevocable rlghLs nelLher ls lL properLy
or properLy rlghLs (eople vs Cng 1ln 34 CC 7376)
We relLeraLed Lhls pronouncemenL ln lellpe smoel It co loc vs uepoty
xecotlve 5ectetoty
26

1lmber llcenses permlLs and llcense agreemenLs are Lhe prlnclpal lnsLrumenLs
by whlch Lhe SLaLe regulaLes Lhe uLlllzaLlon and dlsposlLlon of foresL resources Lo
Lhe end LhaL publlc welfare ls promoLed And lL can hardly be galnsald LhaL Lhey
merely evldence a prlvllege granLed by Lhe SLaLe Lo quallfled enLlLles and do noL
vesL ln Lhe laLLer a permanenL or lrrevocable rlghL Lo Lhe parLlcular concesslon area
and Lhe foresL producLs Lhereln 1hey may be valldly amended modlfled replaced
or resclnded by Lhe Chlef LxecuLlve when naLlonal lnLeresLs so requlre 1hus Lhey
are noL deemed conLracLs wlLhln Lhe purvlew of Lhe due process of law clause
5ee SecLlons 3(ee) and 20 of res uecree no 703 as amended Also 1an v
ulrecLor of loresLry C8 no L24348 CcLober 27 1983 123 SC8A 302
Slnce Llmber llcenses are noL conLracLs Lhe nonlmpalrmenL clause whlch reads
Sec 10 no law lmpalrlng Lhe obllgaLlon of conLracLs shall be passed
27

cannoL be lnvoked
ln Lhe second place even lf lL ls Lo be assumed LhaL Lhe same are conLracLs Lhe
lnsLanL case does noL lnvolve a law or even an execuLlve lssuance declarlng Lhe
cancellaLlon or modlflcaLlon of exlsLlng Llmber llcenses Pence Lhe nonlmpalrmenL
clause cannoL as yeL be lnvoked neverLheless granLlng furLher LhaL a law has
acLually been passed mandaLlng cancellaLlons or modlflcaLlons Lhe same cannoL
sLlll be sLlgmaLlzed as a vlolaLlon of Lhe nonlmpalrmenL clause 1hls ls because by
lLs very naLure and purpose such as law could have only been passed ln Lhe
exerclse of Lhe pollce power of Lhe sLaLe for Lhe purpose of advanclng Lhe rlghL of
Lhe people Lo a balanced and healLhful ecology promoLlng Lhelr healLh and
enhanclng Lhe general welfare ln Abe vs lostet wbeelet
cotp
28
Lhls CourL sLaLed
1he freedom of conLracL under our sysLem of governmenL ls noL meanL Lo be
absoluLe 1he same ls undersLood Lo be sub[ecL Lo reasonable leglslaLlve regulaLlon
almed aL Lhe promoLlon of publlc healLh moral safeLy and welfare ln oLher words
Lhe consLlLuLlonal guaranLy of nonlmpalrmenL of obllgaLlons of conLracL ls llmlLed
by Lhe exerclse of Lhe pollce power of Lhe SLaLe ln Lhe lnLeresL of publlc healLh
safeLy moral and general welfare
1he reason for Lhls ls emphaLlcally seL forLh ln Neblo vs New otk
29
quoLed
ln lblllpploe Ametlcoo llfe losotooce co vs AoJltot Ceoetol
30
Lo wlL
under our form of governmenL Lhe use of properLy and Lhe maklng of conLracLs are
normally maLLers of prlvaLe and noL of publlc concern 1he general rule ls LhaL boLh
shall be free of governmenLal lnLerference 8uL nelLher properLy rlghLs nor conLracL
rlghLs are absoluLe for governmenL cannoL exlsL lf Lhe clLlzen may aL wlll use hls
properLy Lo Lhe deLrlmenL of hls fellows or exerclse hls freedom of conLracL Lo work
Lhem harm Lqually fundamenLal wlLh Lhe prlvaLe rlghL ls LhaL of Lhe publlc Lo
regulaLe lL ln Lhe common lnLeresL
ln shorL Lhe nonlmpalrmenL clause musL yleld Lo Lhe pollce power of Lhe sLaLe
31

llnally lL ls dlfflculL Lo lmaglne as Lhe Lrlal courL dld how Lhe nonlmpalrmenL
clause could apply wlLh respecL Lo Lhe prayer Lo en[oln Lhe respondenL SecreLary
from recelvlng accepLlng processlng renewlng or approvlng new Llmber llcenses
for save ln cases of teoewol no conLracL would have as of yeL exlsLed ln Lhe oLher
lnsLances Moreover wlLh respecL Lo renewal Lhe holder ls noL enLlLled Lo lL as a
maLLer of rlghL
WPL8LlC8L belng lmpressed wlLh merlL Lhe lnsLanL eLlLlon ls hereby C8An1Lu
and Lhe challenged Crder of respondenL !udge of 18 !uly 1991 dlsmlsslng Clvll Case
no 90777 ls hereby seL aslde 1he peLlLloners may Lherefore amend Lhelr
complalnL Lo lmplead as defendanLs Lhe holders or granLees of Lhe quesLloned
Llmber llcense agreemenLs
no pronouncemenL as Lo cosLs

UMALI VS GUINGCNA
Gk No 131124 March 29 1999

9UkISIMA
AL bar ls a peLlLlon for revlew under 8ule 43 of Lhe 8evlsed 8ules of CourL assalllng
Lhe declslon of Lhe CourL of Appeals daLed Aprll 8 1997 whlch seL aslde Lhe
Amended ueclslon daLed uecember 13 1993 of Lhe 8eglonal 1rlal CourL of MakaLl
ln Clvll Case no 943079 and dlsmlssed Lhe peLlLlon for CerLlorarl rohlblLlon and
ln[uncLlon broughL by peLlLloner agalnsL Lhe respondenLs
1he anLecedenL facLs leadlng Lo Lhe flllng of Lhe presenL peLlLlon are as follows
Cn CcLober 27 1993 peLlLloner Csmundo umall was appolnLed 8eglonal ulrecLor
of Lhe 8ureau of lnLernal 8evenue by Lhe Lhen resldenL lldel v 8amos Pe was
asslgned ln Manlla from november 29 1993 Lo March 13 1994 and ln MakaLl
from March 16 1994 Lo AugusL 4 1994
Cn AugusL 1 1994 resldenL 8amos recelved a confldenLlal memorandum agalnsL
Lhe peLlLloner for alleged vlolaLlons of lnLernal revenue laws rules and regulaLlons
durlng hls lncumbency as 8eglonal ulrecLor more parLlcularly Lhe followlng
malfeasance mlsfeasance and nonfeasance Lo wlL
89

A lssuance of LeLLers of AuLhorlLy (LA's) Lo lnvesLlgaLe Laxpayers desplLe Lhe ban
on lnvesLlgaLlons as ordered ln 8evenue memorandum Crder no 3193 ln
numerous cases revenue offlcers whose names appeared ln Lhe LA's as
lnvesLlgaLlng offlcers were unaware LhaL such LA's were lssued Lo Lhem Pe lssued
LA's Lo favored revenue examlners such as hls SecreLary naLlvldad lellclano
8 1ermlnaLlon of Lax cases wlLhouL Lhe submlsslon of Lhe requlred lnvesLlgaLlon
reporLs Lhus exempLlng Lhe same from examlnaLlon and revlew
C 1ermlnaLed cases wlLh reporLs were submlLLed dlrecLly Lo and approved by
respondenL umall wlLhouL belng revlewed by Lhe AssessmenL ulvlslon Lhus
ellmlnaLlng Lhe check and balance mechanlsm deslgned Lo guard agalnsL abuses or
errors
u unlawful lssuance of LA's Lo Laxpayers who were LhereafLer convlnced Lo avall
of Lhe 8l8's compromlse and abaLemenL program under 8MC's 43093 and 3493
for whlch Lhe Laxpayers were made for a moneLary conslderaLlon Lo pay smaller
amounLs ln lleu of belng lnvesLlgaLed
L uesplLe Lhe devoluLlon of Lhe auLhorlLy Lo lssue LA's from 8eglonal ulrecLors Lo
Lhe 8evenue ulsLrlcL Cfflcers under 8MC 2694 daLed Aprll 14 1994 respondenL
umall conLlnued Lo lssue anLedaLed LA's ln absoluLe deflance of Lhe aforesald
lssuance uslng old LA's requlslLloned by hlm when sLlll 8eglonal ulrecLor of San
ablo 8eglon ln one lnsLance he lssued a LermlnaLlon leLLer bearlng Lhe San ablo
8eglon leLLerhead even when he was already MakaLl 8eglonal ulrecLor and
l ln hls aLLempL Lo cover up hls Lracks and Lo muddle Lhe real lssue of hls
vlolaLlons of Lhe ban ln Lhe lssuance of LA's and baslc revenue rules and regulaLlons
respondenL enllsLed Lhe supporL of oLher reglonal dlrecLors for Lhe purpose of
quesLlonlng parLlcularly Lhe devoluLlon/cenLrallzaLlon of Lhe funcLlons of Lhe
8ureau
1

Cn AugusL 2 1994 upon recelpL of Lhe sald confldenLlal memorandum former
resldenL 8amos auLhorlzed Lhe lssuance of an Crder for Lhe prevenLlve suspenslon
of umall and lmmedlaLely referred Lhe ComplalnL agalnsL Lhe laLLer Lo Lhe
resldenLlal Commlsslon on AnLlCrafL and CorrupLlon (lcACc) for lnvesLlgaLlon
eLlLloner was duly lnformed of Lhe charges agalnsL hlm ln lLs Crder daLed AugusL
9 1994 Lhe CACC dlrecLed hlm Lo send ln hls answer coples of hls SLaLemenL of
AsseLs and LlablllLles for Lhe pasL Lhree years (J) and ersonal uaLa SheeL lnlLlal
hearlng was seL on AugusL 23 1994 aL 200 pm aL Lhe CACC Cfflce Cn AugusL
23 Lhe peLlLloner flled hls requlred Answer
Cn AugusL 23 1994 peLlLloner appeared wlLh hls lawyer ALLy 8lenvenldo SanLlago
before Lhe CACC Counsel for Lhe Commlssloner of lnLernal 8evenue submlLLed a
rogress 8eporL daLed AugusL 24 1994 on Lhe audlL conducLed on Lhe
peLlLloner As prayed for peLlLloner and hls lawyer were granLed flve (5) days Lo flle
a supplemenLal answer
1he hearlng was reseL Lo AugusL 30 1994 durlng whlch Lhe parLles were glven a
chance Lo ask clarlflcaLory quesLlons eLlLloner and hls counsel dld noL ask any
quesLlon on Lhe genulneness and auLhenLlclLy of Lhe documenLs aLLached as
annexes Lo Lhe ComplalnL 1hereafLer Lhe parLles agreed Lo submlL Lhe case for
resoluLlon upon Lhe presenLaLlon of Lhelr respecLlve memoranda
eLlLloner flled hls Memorandum on SepLember 6 1994 whlle Lhe 8l8 senL ln lLs
Memorandum on Lhe followlng day
AfLer evaluaLlng Lhe evldence on record Lhe CACC lssued lLs 8esoluLlon of
SepLember 23 1994 flndlng a prlma facle evldence Lo supporL slx (6) of Lhe
Lwelve (12) charges agalnsL peLlLloner Lo wlL
1 Cn Lhe llrsL Charge 8espondenL lssued 176 LeLLers of AuLhorlLy ln gross
dlsobedlence Lo and ln vlolaLlon of 8MCs 3193 and 2794
xxx xxx xxx
3 Cn Lhe 1hlrd Charge 1here ls sufflclenL evldence of a prlma facle case of
falslflcaLlon of offlclal documenLs as deflned ln ArL 171 par 2 and 4 of Lhe 8evlsed
enal Code agalnsL Lhe respondenL for Lhe lssuance of 9 LA's and who dld noL
lnvesLlgaLe Lhe Lax cases each LA belng a separaLe offense
xxx xxx xxx
7 Cn Lhe SevenLh Charge 1here ls sufflclenL evldence of a prlma facle case of
falslflcaLlon of offlclal documenLs agalnsL respondenL for anLedaLlng Lhe four LA's
clLed ln Lhe charge each LA consLlLuLlng a separaLe offense under ArL 171 (4) of
Lhe 8evlsed enal Code
8 Cn Lhe nlnLh (slc) Charge 1here ls sufflclenL evldence Lo supporL a prlma facle
case of falslflcaLlon of an offlclal documenL under ArL 171 (4) of Lhe 8evlsed enal
Code agalnsL Lhe respondenL ln Lhe Lax case of 8lchfleld lnLernaLlonal Corp lnc for
lndlcaLlng a false daLe on Lhe leLLer of LermlnaLlon he lssued Lo Lhe company 1here
ls however lnsufflclenL evldence agalnsL respondenL ln Lhe oLher Lax case of !ayson
AuLo Supply Co
9 Cn Lhe nlnLh Charge 1here ls sufflclenL evldence of a prlma facle case of
falslflcaLlon of offlclal documenLs ln each of Lhe Lwo Lax cases clLed ln hls charge
under Lhe provlslons of ArL 171 (4) of Lhe 8evlsed enal Code as Lhe daLes of
1ermlnaLlon LeLLers were false
10 Cn Lhe 1enLh Charge 8espondenL by hls own admlsslon vlolaLed 8MC 3687
requlrlng Lurn over of all properLles and forms Lo hls successor upon Lransfer a head
of offlce and 8MC 2794 requlrlng Lhe surrender of all unused old forms of LeLLers
of AuLhorlLy 1he Commlsslon noLed Lhe deflanL aLLlLude of respondenL as
expressed ln hls admlsslon Lowards valld and legal orders of Lhe 8l8 and hls
propenslLy Lo defy and lgnore such orders and regulaLlons
2

xxx xxx xxx
Cn CcLober 6 1994 acLlng upon Lhe recommendaLlon of Lhe CACC Lhen resldenL
8amos lssued AdmlnlsLraLlve Crder no 132 dlsmlsslng peLlLloner from Lhe servlce
wlLh forfelLure of reLlremenL and all beneflLs under Lhe law
90

Cn CcLober 24 1994 Lhe peLlLloner moved for reconslderaLlon of hls dlsmlssal buL
Lhe Cfflce of Lhe resldenL denled Lhe moLlon for reconslderaLlon on november 28
1994
Cn uecember 1 1994 peLlLloner broughL a eLlLlon for cettlototl rohlblLlon and
ln[uncLlon dockeLed as Clvll Case no 943079 before Lhe 8eglonal 1rlal CourL of
MakaLl alleglng among oLhers
l 1haL Lhe peLlLloner was suspended and dlsmlssed from Lhe servlce ln vlolaLlon of
hls consLlLuLlonal rlghL Lo due process of law and
ll 1haL Lhe consLlLuLlonal rlghL of Lhe peLlLloner Lo securlLy of Lenure was vlolaLed
by Lhe respondenLs
1he case was raffled off Lo 8ranch 133 of Lhe 8eglonal 1rlal CourL ln MakaLl whlch
lssued on uecember 2 1994 a 1emporary 8esLralnlng Crder en[olnlng Lhe
respondenLs and/or Lhelr represenLaLlves from enforclng AdmlnlsLraLlve Crder no
132 and dlrecLlng Lhe parLles Lo observe Lhe sLaLus quo unLll furLher orders from
Lhe sald CourL
Cn uecember 23 1994 Lhe sald 8eglonal 1rlal CourL dlsmlssed Lhe peLlLlon Cn
!anuary 10 1993 Lhe peLlLloner presenLed a moLlon for reconslderaLlon Lhls Llme
Lheorlzlng LhaL Lhe resldenLlal Commlsslon on AnLlCrafL and CorrupLlon ls an
unconsLlLuLlonal offlce wlLhouL [urlsdlcLlon Lo conducL Lhe lnvesLlgaLlon agalnsL hlm
8espondenLs submlLLed Lhelr CpposlLlon/CommenL Lo Lhe MoLlon for
8econslderaLlon 1hen Lhe peLlLloner flled a MoLlon Lo lnhlblL !udge lnoLuran on
Lhe ground LhaL Lhe laLLer was formerly a SollclLor ln Lhe Cfflce of Lhe SollclLor
Ceneral and could noL be expecLed Lo declde Lhe case wlLh uLmosL lmparLlallLy
1he case was Lhen reraffled Lo Pon 1eofllo L Cuadlz !r who on uecember 13
1993 handed down an Amended ueclslon granLlng Lhe peLlLlon and pracLlcally
reverslng Lhe orlglnal ueclslon
noL saLlsfled wlLh Lhe Amended ueclslon of !udge Cuadlz !r Lhe respondenLs
appealed Lherefrom Lo Lhe CourL of Appeals
Cn Aprll 8 1997 Lhe nlnLh ulvlslon of Lhe CourL of Appeals
3
promulgaLed lLs
declslon reverslng Lhe Amended ueclslon of Lhe Lrlal courL of orlgln and dlsmlsslng
Clvll Case no 943079 eLlLloner's moLlon for reconslderaLlon meL Lhe same
faLe lL was denled on CcLober 28 1997
undaunLed peLlLloner found hls way Lo Lhls CourL vla Lhe peLlLlon under scruLlny
ln Lhe lnLerlm LhaL Lhe admlnlsLraLlve and clvll cases agalnsL Lhe peLlLloner were
pendlng Lhe crlmlnal aspecL of such cases was referred Lo Lhe Cfflce of Lhe
Cmbudsman for lnvesLlgaLlon
Cn !uly 23 1993 afLer conducLlng Lhe lnvesLlgaLlon Cmbudsman lnvesLlgaLors
Merba Waga and Arnulfo elaglo lssued a 8esoluLlon flndlng a probable cause and
recommendlng Lhe lnsLlLuLlon ln Lhe courLs of proper !urlsdlcLlon crlmlnal cases for
lalslflcaLlon of ubllc uocumenLs (1J cooots) and Cpen ulsobedlence (2
cooots) agalnsL Lhe peLlLloner
Powever acLlng upon peLlLloner's moLlon for reconslderaLlon Speclal rosecuLlon
Cfflcer ll Lemuel M ue Cuzman seL aslde Lhe sald 8esoluLlon of !uly 23 1993 and
ln lleu Lhereof dlsmlssed Lhe charges agalnsL peLlLloner ln Lhe Crder daLed
november 3 1996 whlch was approved by Cmbudsman Anlano ueslerLo
Accordlngly all Lhe lnformaLlons agalnsL Lhe peLlLloner prevlously senL Lo Lhe Cfflce
of Lhe ClLy rosecuLor were recalled
Cn AugusL 10 1998 Commlssloner 8eeLhoven L 8ualo of Lhe 8ureau of lnLernal
8evenue senL a leLLer Lo Lhe SollclLor Ceneral lnformlng Lhe laLLer LhaL tbe 8oteoo
of lotetool keveooe ls oo looqet lotetesteJ lo potsoloq tbe cose oqolost Atty
OsmooJo umoll on Lhe basls of Lhe commenL and recommendaLlon submlLLed by
Lhe Legal ueparLmenL of Lhe 8l8
4

eLlLloner ralsed Lhe lssues
1 WPL1PL8 AuMlnlS18A1lvL C8uL8 nC 132 vlCLA1Lu L1l1lCnL8'S 8lCP1 1C
SLCu8l1? Cl 1Lnu8L
2 WPL1PL8 L1l1lCnL8 WAS uLnlLu uuL 8CCLSS ln 1PL lSSuAnCL Cl
AuMlnlS18A1lvL C8uL8 nC 132
3 WPL1PL8 1PL CACC lS A vALluL? CCnS1l1u1Lu CCvL8nMLn1 ACLnC? Anu
WPL1PL8 L1l1lCnL8 CAn 8AlSL 1PL lSSuL Cl l1S CCnS1l1u1lCnALl1?
8LLA1LuL? ln l1S MC1lCn lC8 8LCCnSluL8A1lCn Cl 1PL 18lAL CCu81'S
uLClSlCn Anu
3 WPL1PL8 ln 1PL LlCP1 Cl 1PL CM8uuSMAn 8LSCLu1lCn ulSMlSSlnC 1PL
CPA8CLS ACAlnS1 L1l1lCnL8 1PL8L lS S1lLL 8ASlS lC8 L1l1lCnL8'S ulSMlSSAL
Wl1P lC8lLl1u8L Cl 8LnLll1S AS 8uLLu ln AuMlnlS18A1lvL C8uL8 nC 132
eLlLloner conLends LhaL as 8eglonal ulrecLor of Lhe 8ureau of lnLernal 8evenue he
belongs Lo Lhe Career LxecuLlve Servlce AlLhough a presldenLlal appolnLee under
Lhe dlrecL auLhorlLy of Lhe resldenL Lo dlsclpllne he ls a career execuLlve servlce
offlcer (c5O) wlLh Lenurlal proLecLlon who can only be removed for cause ln
supporL of Lhls Lheory peLlLloner clLed Lhe case of lotlo vs xecotlve
5ectetoty
3
where Lhe courL held
xxx peLlLloner ls a presldenLlal appolnLee who belongs Lo Lhe career servlce of Lhe
Clvll Servlce 8elng a presldenLlal appolnLee he comes under Lhe dlrecL dlsclpllnlng
auLhorlLy of Lhe resldenL 1hls ls ln llne wlLh Lhe seLLled prlnclple LhaL Lhe power
Lo remove ls lnherenL ln Lhe power Lo appolnL" conferred Lo Lhe resldenL by
SecLlon 16 ArLlcle vll of Lhe consLlLuLlon xxx 1hls power of removal however ls
noL an absoluLe one whlch accepLs no reservaLlon lL musL be polnLed ouL LhaL
peLlLloner ls a career servlce offlcer xxx Speclflcally SecLlon 36 of u no 807 as
amended oLherwlse known as Clvll Servlce uecree of Lhe hlllpplnes ls emphaLlc
LhaL career servlce offlcers and employees who en[oy securlLy of Lenure may be
removed only for any of Lhe causes enumeraLed ln sald law ln oLher words Lhe
facL LhaL peLlLloner ls a presldenLlal appolnLee does noL glve Lhe appolnLlng
auLhorlLy Lhe llcense Lo remove hlm aL wlll or aL hls pleasure for lL ls an admlLLed
facL LhaL he ls llkewlse a career servlce offlcer who under Lhe law ls Lhe reclplenL of
91

Lenurlal proLecLlon Lhus may only be removed for cause and ln accordance wlLh
procedural due process"
eLlLloner malnLalns LhaL as a career execuLlve servlce offlcer he can only be
removed for cause and under Lhe AdmlnlsLraLlve Code of 1987
6
loss of confldence
ls noL one of Lhe legal causes or grounds for removal ConsequenLly hls dlsmlssal
from offlce on Lhe ground of loss of confldence vlolaLed hls rlghL Lo securlLy of
Lenure peLlLloner Lheorlzed
AfLer a careful sLudy we are of Lhe lrreslsLlble concluslon LhaL Lhe CourL of Appeals
ruled correcLly on Lhe flrsL Lhree lssues 1o be sure peLlLloner was noL denled Lhe
rlghL Lo due process before Lhe CACC 8ecords show LhaL Lhe peLlLloner flled hls
answer and oLher pleadlngs wlLh respecL Lo hls alleged vlolaLlon of lnLernal revenue
laws and regulaLlons and he aLLended Lhe hearlngs before Lhe lnvesLlgaLory body lL
ls Lhus declslvely clear LhaL hls proLesLaLlon of nonobservance of due process ls
devold of any facLual or legal basls
nelLher can lL be sald LhaL Lhere was a vlolaLlon of whaL peLlLloner asserLs as hls
securlLy of Lenure Accordlng Lo peLlLloner as a 8eglonal ulrecLor of 8ureau of
lnLernal 8evenue he ls a CLSC ellglble enLlLled Lo securlLy of Lenure Powever
peLlLloner's clalm of CLSC ellglblllLy ls anemlc of evldenLlary supporL lL was
lncumbenL upon hlm Lo prove LhaL he ls a CLSC ellglble buL unforLunaLely he falled
Lo adduce sufflclenL evldence on Lhe maLLer Pls fallure Lo do so ls faLal
As regards Lhe lssue of consLlLuLlonallLy of Lhe CACC lL was only posed by
peLlLloner ln hls moLlon for reconslderaLlon before Lhe 8eglonal 1rlal CourL of
MakaLl lL was cerLalnly Loo laLe Lo ralse Lhe sald lssue for Lhe flrsL Llme aL such laLe
sLage of Lhe proceedlngs below
Pow abouL Lhe fourLh lssue wheLher ln vlew of Lhe 8esoluLlon of Lhe Cmbudsman
dlsmlsslng Lhe charges agalnsL peLlLloner Lhere sLlll remalns a basls for Lhe laLLer'
dlsmlssal wlLh forfelLure of beneflLs as dlrecLed ln AdmlnlsLraLlve Crder no 132?
lL ls worLhy Lo noLe LhaL ln Lhe case under conslderaLlon Lhe admlnlsLraLlve acLlon
agalnsL Lhe peLlLloner was Laken prlor Lo Lhe lnsLlLuLlon of Lhe crlmlnal case 1he
charges lncluded ln AdmlnlsLraLlve Crder no 132 were based on Lhe resulLs of
lnvesLlgaLlon conducLed by Lhe CACC and noL on Lhe crlmlnal charges before Lhe
Cmbudsman
ln sum Lhe peLlLlon ls dlsmlssable on Lhe ground LhaL Lhe lssues poslLed by Lhe
peLlLloner do noL consLlLuLe a valld legal basls for overLurnlng Lhe flndlng and
concluslon arrlved aL by Lhe CourL of Appeals Powever Laklng lnLo accounL Lhe
anLecedenL facLs and clrcumsLances aforemenLloned Lhe CourL ln Lhe exerclse of
lLs equlLy powers has declded Lo conslder Lhe dlsmlssal of Lhe charges agalnsL
peLlLloner before Lhe Cmbudsman Lhe succlncL and unmlsLakable manlfesLaLlon by
Lhe Commlssloner of Lhe 8ureau of lnLernal 8evenue LhaL hls offlce ls no longer
lnLeresLed ln pursulng Lhe case and Lhe poslLlon Laken by Lhe SollclLor
Ceneral
7
LhaL Lhere ls no more basls for AdmlnlsLraLlve Crder no 132 as effecLlve
and subsLanLlve supervenlng evenLs LhaL cannoL be overlooked
JLkLICkL ln llghL of Lhe foregolng effecLlve and subsLanLlve supervenlng
evenLs and ln Lhe exerclse of lLs equlLy powers Lhe CourL hereby C8An1S Lhe
peLlLlon Accordlngly AdmlnlsLraLlve Crder no 132 ls consldered Lll1Lu and
peLlLloner can be allowed Lo reLlre wlLh full beneflLs no pronouncemenL as Lo
cosLs

I89 VS 2AMCkA
Gk No 141284 August 1S 2000

kA9UNAN
AL bar ls a speclal clvll acLlon for cettlototl and prohlblLlon wlLh prayer for lssuance
of a Lemporary resLralnlng order seeklng Lo nulllfy on consLlLuLlonal grounds Lhe
order of resldenL !oseph L[erclLo LsLrada commandlng Lhe deploymenL of Lhe
hlllpplne Marlnes (Lhe Marlnes") Lo [oln Lhe hlllpplne naLlonal ollce (Lhe n")
ln vlslblllLy paLrols around Lhe meLropolls
ln vlew of Lhe alarmlng lncrease ln vlolenL crlmes ln MeLro Manlla llke
robberles kldnapplngs and carnapplngs Lhe resldenL ln a verbal dlrecLlve
ordered Lhe n and Lhe Marlnes Lo conducL [olnL vlslblllLy paLrols for Lhe purpose
of crlme prevenLlon and suppresslon 1he SecreLary of naLlonal uefense Lhe Chlef
of SLaff of Lhe Armed lorces of Lhe hlllpplnes (Lhe Al") Lhe Chlef of Lhe n and
Lhe SecreLary of Lhe lnLerlor and Local CovernmenL were Lasked Lo execuLe and
lmplemenL Lhe sald order ln compllance wlLh Lhe presldenLlal mandaLe Lhe n
Chlef Lhrough ollce Chlef SuperlnLendenL Ldgar 8 Agllpay formulaLed LeLLer of
lnsLrucLlon 02/2000
1
(Lhe LCl") whlch deLalled Lhe manner by whlch Lhe [olnL
vlslblllLy paLrols called 1ask lorce 1olooqoo would be conducLed
2
1ask
lorce 1olooqoo was placed under Lhe leadershlp of Lhe ollce Chlef of MeLro
Manlla
SubsequenLly Lhe resldenL conflrmed hls prevlous dlrecLlve on Lhe deploymenL of
Lhe Marlnes ln a Memorandum daLed 24 !anuary 2000 addressed Lo Lhe Chlef of
SLaff of Lhe Al and Lhe n Chlef
3
ln Lhe Memorandum Lhe resldenL expressed
hls deslre Lo lmprove Lhe peace and order slLuaLlon ln MeLro Manlla Lhrough a
more effecLlve crlme prevenLlon program lncludlng lncreased pollce paLrols
4
1he
resldenL furLher sLaLed LhaL Lo helghLen pollce vlslblllLy ln Lhe meLropolls
augmenLaLlon from Lhe Al ls necessary
3
lnvoklng hls powers as Commanderln
Chlef under SecLlon 18 ArLlcle vll of Lhe ConsLlLuLlon Lhe resldenL dlrecLed Lhe
Al Chlef of SLaff and n Chlef Lo coordlnaLe wlLh each oLher for Lhe proper
deploymenL and uLlllzaLlon of Lhe Marlnes Lo asslsL Lhe n ln prevenLlng or
suppresslng crlmlnal or lawless vlolence
6
llnally Lhe resldenL declared LhaL Lhe
servlces of Lhe Marlnes ln Lhe anLlcrlme campalgn are merely Lemporary ln naLure
and for a reasonable perlod only unLll such Llme when Lhe slLuaLlon shall have
lmproved
7

92

1he LCl explalns Lhe concepL of Lhe nhlllpplne Marlnes [olnL vlslblllLy paLrols as
follows
x x x
2 luklO5
1be Iolot lmplemeotloq lollce vlslblllty lottols betweeo tbe lNl NcklO ooJ tbe
lblllpploe Motloes pottoetsblp lo tbe cooJoct of vlslblllty pottols lo Metto Moollo
fot tbe sopptessloo of ctlme pteveotloo ooJ otbet setloos tbteots to ootloool
secotlty
J 5l1uA1lON
ctlmlool loclJeots lo Metto Moollo bove beeo petpettoteJ oot ooly by otJlooty
ctlmlools bot olso by otqoolzeJ syoJlcotes wbose membets locloJe octlve ooJ
fotmet pollce/mllltoty petsoooel wbose ttololoq sklll Jlsclplloe ooJ fltepowet ptove
wellobove tbe pteseot copoblllty of tbe locol pollce olooe to booJle 1be
Jeploymeot of o jolot lNl NcklOlblllpploe Motloes lo tbe cooJoct of pollce
vlslblllty pottol lo otboo oteos wlll teJoce tbe loclJeoce of ctlmes speclolly tbose
petpettoteJ by octlve ot fotmet pollce/mllltoty petsoooel
4 Ml55lON
1be lNl NcklO wlll otqoolze o ptovlsloool 1osk lotce to cooJoct jolot NcklOlM
vlslblllty pottols to keep Metto Moollo stteets ctlmeftee tbtooqb o sostoloeJ stteet
pottollloq to mlolmlze ot etoJlcote oll fotms of blqbptoflle ctlmes especlolly tbose
petpettoteJ by otqoolzeJ ctlme syoJlcotes wbose membets locloJe tbose tbot ote
wellttoloeJ JlsclplloeJ ooJ wellotmeJ octlve ot fotmet lNl/Mllltoty petsoooel
5 cONcl1 lN IOlN1 vl5l8lll1 lA1kOl OlkA1lON5
o 1be vlslblllty pottols sboll be cooJocteJ jolotly by tbe NcklO Notloool copltol
keqloool lollce Offlce ooJ tbe lblllpploe Motloes to cotb ctlmloollty lo Metto
Moollo ooJ to ptesetve tbe lotetool secotlty of tbe stote oqolost losotqeots ooJ
otbet setloos tbteot to ootloool secotlty oltbooqb tbe ptlmoty tespooslblllty ovet
lotetool 5ecotlty Opetotloos stlll tests opoo tbe All
b 1be ptloclple of loteqtotloo of effotts sboll be opplleJ to etoJlcote oll fotms of
blqbptoflle ctlmes petpettoteJ by otqoolzeJ ctlme syoJlcotes opetotloq lo Metto
Moollo 1bls coocept tepoltes tbe mllltoty ooJ pollce to wotk cobeslvely ooJ oolfy
effotts to eosote o focoseJ effectlve ooJ bollstlc opptoocb lo oJJtessloq ctlme
pteveotloo Alooq tbls lloe tbe tole of tbe mllltoty ooJ pollce oslJe ftom oeottollzloq
ctlme syoJlcotes ls to btloq o wbolesome otmospbete wbetelo Jellvety of boslc
setvlces to tbe people ooJ Jevelopmeot ls ocbleveJ nooJlobooJ wltb tbls jolot
NcklOlblllpploe Motloes vlslblllty pottols locol lollce uolts ote tespooslble fot tbe
moloteoooce of peoce ooJ otJet lo tbelt locollty
c 1o eosote tbe effectlve lmplemeototloo of tbls ptoject o ptovlsloool 1osk lotce
#1uluNCAN sboll be otqoolzeJ to ptovlJe tbe mecboolsm sttoctote ooJ
ptoceJotes fot tbe loteqtoteJ ploooloq cootJlootloq mooltotloq ooJ ossessloq tbe
secotlty sltootloo
xxx
8

1he selecLed areas of deploymenL under Lhe LCl are MonumenLo Clrcle norLh Ldsa
(SM ClLy) AraneLa Shopplng CenLer Creenhllls SM Megamall MakaLl Commerclal
CenLer L81/M81 SLaLlons and Lhe nAlA and uomesLlc AlrporL
9

Cn 17 !anuary 2000 Lhe lnLegraLed 8ar of Lhe hlllpplnes (Lhe l8") flled Lhe
lnsLanL peLlLlon Lo annul LCl 02/2000 and Lo declare Lhe deploymenL of Lhe
hlllpplne Marlnes null and vold and unconsLlLuLlonal argulng LhaL
I
1PL uLLC?MLn1 Cl 1PL PlLllnL MA8lnLS ln ML18C MAnlLA lS vlCLA1lvL Cl
1PL CCnS1l1u1lCn ln 1PA1
A) nC LML8CLnC? Sl1uA1lCn C81AlnS ln ML18C MAnlLA AS WCuLu !uS1ll?
LvLn CnL? 8LMC1LL? 1PL uLLC?MLn1 Cl SCLulL8S lC8 LAW LnlC8CLMLn1
WC8k PLnCL SAlu uLLC?MLn1 lS ln uL8CCA1lCn Cl A81lCLL ll SLC1lCn 3 Cl
1PL CCnS1l1u1lCn
8) SAlu uLLC?MLn1 CCnS1l1u1LS An lnSlulCuS lnCu8SlCn 8? 1PL MlLl1A8? ln
A ClvlLlAn lunC1lCn Cl CCvL8nMLn1 (LAW LnlC8CLMLn1) ln uL8CCA1lCn Cl
A81lCLL xvl SLC1lCn 3 (4) Cl 1PL CCnS1l1u1lCn
C) SAlu uLLC?MLn1 C8LA1LS A uAnCL8CuS 1LnuLnC? 1C 8LL? Cn 1PL
MlLl1A8? 1C L8lC8M 1PL ClvlLlAn lunC1lCnS Cl 1PL CCvL8nMLn1
II
ln MlLl1A8lZlnC LAW LnlC8CLMLn1 ln ML18C MAnlLA 1PL AuMlnlS18A1lCn lS
unWl11lnCL? MAklnC 1PL MlLl1A8? MC8L CWL8luL 1PAn WPA1 l1 SPCuLu
8LALL? 8L unuL8 1PL CCnS1l1u1lCn
10

AsserLlng lLself as Lhe offlclal organlzaLlon of llllplno lawyers Lasked wlLh Lhe
bounden duLy Lo uphold Lhe rule of law and Lhe ConsLlLuLlon Lhe l8 quesLlons Lhe
valldlLy of Lhe deploymenL and uLlllzaLlon of Lhe Marlnes Lo asslsL Lhe n ln law
enforcemenL
WlLhouL granLlng due course Lo Lhe peLlLlon Lhe CourL ln a 8esoluLlon
11
daLed 23
!anuary 2000 requlred Lhe SollclLor Ceneral Lo flle hls CommenL on Lhe
peLlLlon Cn 8 lebruary 2000 Lhe SollclLor Ceneral submlLLed hls CommenL
1he SollclLor Ceneral vlgorously defends Lhe consLlLuLlonallLy of Lhe acL of Lhe
resldenL ln deploylng Lhe Marlnes conLendlng among oLhers LhaL peLlLloner has
no legal sLandlng LhaL Lhe quesLlon of deploymenL of Lhe Marlnes ls noL proper for
[udlclal scruLlny slnce Lhe same lnvolves a pollLlcal quesLlon LhaL Lhe organlzaLlon
and conducL of pollce vlslblllLy paLrols whlch feaLure Lhe Leamup of one pollce
offlcer and one hlllpplne Marlne soldler does noL vlolaLe Lhe clvlllan supremacy
clause ln Lhe ConsLlLuLlon
1he lssues ralsed ln Lhe presenL peLlLlon are (1) WheLher or noL peLlLloner has legal
sLandlng (2) WheLher or noL Lhe resldenL's facLual deLermlnaLlon of Lhe necesslLy
of calllng Lhe armed forces ls sub[ecL Lo [udlclal revlew and (3) WheLher or noL Lhe
calllng of Lhe armed forces Lo asslsL Lhe n ln [olnL vlslblllLy paLrols vlolaLes Lhe
consLlLuLlonal provlslons on clvlllan supremacy over Lhe mlllLary and Lhe clvlllan
characLer of Lhe n
93

1he peLlLlon has no merlL
llrsL peLlLloner falled Lo sufflclenLly show LhaL lL ls ln possesslon of Lhe requlslLes of
sLandlng Lo ralse Lhe lssues ln Lhe peLlLlon Second Lhe resldenL dld noL commlL
grave abuse of dlscreLlon amounLlng Lo lack or excess of [urlsdlcLlon nor dld he
commlL a vlolaLlon of Lhe clvlllan supremacy clause of Lhe ConsLlLuLlon
1he power of [udlclal revlew ls seL forLh ln SecLlon 1 ArLlcle vlll of Lhe ConsLlLuLlon
Lo wlL
SecLlon 1 1he [udlclal power shall be vesLed ln one Supreme CourL and ln such
lower courLs as may be esLabllshed by law
!udlclal power lncludes Lhe duLy of Lhe courLs of [usLlce Lo seLLle acLual
conLroversles lnvolvlng rlghLs whlch are legally demandable and enforceable and Lo
deLermlne wheLher or noL Lhere has been grave abuse of dlscreLlon amounLlng Lo
lack or excess of [urlsdlcLlon on Lhe parL of any branch or lnsLrumenLallLy of Lhe
CovernmenL
When quesLlons of consLlLuLlonal slgnlflcance are ralsed Lhe CourL can exerclse lLs
power of [udlclal revlew only lf Lhe followlng requlslLes are complled wlLh namely
(1) Lhe exlsLence of an acLual and approprlaLe case (2) a personal and subsLanLlal
lnLeresL of Lhe parLy ralslng Lhe consLlLuLlonal quesLlon (3) Lhe exerclse of [udlclal
revlew ls pleaded aL Lhe earllesL opporLunlLy and (4) Lhe consLlLuLlonal quesLlon ls
Lhe lls moto of Lhe case
12

@he l8P hos not sufficient/y comp/ied with the requisites of stondinq in this cose
Legal sLandlng" or locos stooJl has been deflned as a personal and subsLanLlal
lnLeresL ln Lhe case such LhaL Lhe parLy has susLalned or wlll susLaln dlrecL ln[ury as a
resulL of Lhe governmenLal acL LhaL ls belng challenged
13
1he Lerm lnLeresL"
means a maLerlal lnLeresL an lnLeresL ln lssue affecLed by Lhe decree as
dlsLlngulshed from mere lnLeresL ln Lhe quesLlon lnvolved or a mere lncldenLal
lnLeresL
14
1he glsL of Lhe quesLlon of sLandlng ls wheLher a parLy alleges such
personal sLake ln Lhe ouLcome of Lhe conLroversy as Lo assure LhaL concreLe
adverseness whlch sharpens Lhe presenLaLlon of lssues upon whlch Lhe courL
depends for lllumlnaLlon of dlfflculL consLlLuLlonal quesLlons"
13

ln Lhe case aL bar Lhe l8 prlmarlly anchors lLs sLandlng on lLs alleged responslblllLy
Lo uphold Lhe rule of law and Lhe ConsLlLuLlon AparL from Lhls declaraLlon
however Lhe l8 asserLs no oLher basls ln supporL of lLs locos stooJl 1he mere
lnvocaLlon by Lhe l8 of lLs duLy Lo preserve Lhe rule of law and noLhlng more whlle
undoubLedly Lrue ls noL sufflclenL Lo cloLhe lL wlLh sLandlng ln Lhls case 1hls ls Loo
general an lnLeresL whlch ls shared by oLher groups and Lhe whole clLlzenry 8ased
on Lhe sLandards abovesLaLed Lhe l8 has falled Lo presenL a speclflc and
subsLanLlal lnLeresL ln Lhe resoluLlon of Lhe case lLs fundamenLal purpose whlch
under SecLlon 2 8ule 139A of Lhe 8ules of CourL ls Lo elevaLe Lhe sLandards of Lhe
law professlon and Lo lmprove Lhe admlnlsLraLlon of [usLlce ls allen Lo and cannoL
be affecLed by Lhe deploymenL of Lhe Marlnes lL should also be noLed LhaL Lhe
lnLeresL of Lhe naLlonal resldenL of Lhe l8 who slgned Lhe peLlLlon ls hls alone
absenL a formal board resoluLlon auLhorlzlng hlm Lo flle Lhe presenL acLlon 1o be
sure members of Lhe 8A8 Lhose ln Lhe [udlclary lncluded have varylng oplnlons on
Lhe lssue Moreover Lhe l8 assumlng LhaL lL has duly auLhorlzed Lhe naLlonal
resldenL Lo flle Lhe peLlLlon has noL shown any speclflc ln[ury whlch lL has suffered
or may suffer by vlrLue of Lhe quesLloned governmenLal acL lndeed none of lLs
members whom Lhe l8 purporLedly represenLs has susLalned any form of ln[ury
as a resulL of Lhe operaLlon of Lhe [olnL vlslblllLy paLrols nelLher ls lL alleged LhaL
any of lLs members has been arresLed or LhaL Lhelr clvll llberLles have been vlolaLed
by Lhe deploymenL of Lhe Marlnes WhaL Lhe l8 pro[ecLs as ln[urlous ls Lhe
supposed mlllLarlzaLlon" of law enforcemenL whlch mlghL LhreaLen hlllpplne
democraLlc lnsLlLuLlons and may cause more harm Lhan good ln Lhe long run noL
only ls Lhe presumed ln[ury" noL personal ln characLer lL ls llkewlse Loo vague
hlghly speculaLlve and uncerLaln Lo saLlsfy Lhe requlremenL of sLandlng Slnce
peLlLloner has noL successfully esLabllshed a dlrecL and personal ln[ury as a
consequence of Lhe quesLloned acL lL does noL possess Lhe personallLy Lo assall Lhe
valldlLy of Lhe deploymenL of Lhe Marlnes 1hls CourL however does noL
caLegorlcally rule LhaL Lhe l8 has absoluLely no sLandlng Lo ralse consLlLuLlonal
lssues now or ln Lhe fuLure 1he l8 musL by way of allegaLlons and proof saLlsfy
Lhls CourL LhaL lL has sufflclenL sLake Lo obLaln [udlclal resoluLlon of Lhe conLroversy
Pavlng sLaLed Lhe foregolng lL musL be emphaslzed LhaL Lhls CourL has Lhe
dlscreLlon Lo Lake cognlzance of a sulL whlch does noL saLlsfy Lhe requlremenL of
legal sLandlng when paramounL lnLeresL ls lnvolved
16
ln noL a few cases Lhe CourL
has adopLed a llberal aLLlLude on Lhe locos stooJl of a peLlLloner where Lhe
peLlLloner ls able Lo crafL an lssue of LranscendenLal slgnlflcance Lo Lhe
people
17
1hus when Lhe lssues ralsed are of paramounL lmporLance Lo Lhe publlc
Lhe CourL may brush aslde LechnlcallLles of procedure
18
ln Lhls case a readlng of
Lhe peLlLlon shows LhaL Lhe l8 has advanced consLlLuLlonal lssues whlch deserve
Lhe aLLenLlon of Lhls CourL ln vlew of Lhelr serlousness novelLy and welghL as
precedenLs Moreover because peace and order are under consLanL LhreaL and
lawless vlolence occurs ln lncreaslng Lempo undoubLedly aggravaLed by Lhe
Mlndanao lnsurgency problem Lhe legal conLroversy ralsed ln Lhe peLlLlon almosL
cerLalnly wlll noL go away lL wlll sLare us ln Lhe face agaln lL Lherefore behooves
Lhe CourL Lo relax Lhe rules on sLandlng and Lo resolve Lhe lssue now raLher Lhan
laLer
@he President did not commit qrove obuse of discretion in co//inq out the Morines

ln Lhe case aL bar Lhe bone of conLenLlon concerns Lhe facLual deLermlnaLlon of Lhe
resldenL of Lhe necesslLy of calllng Lhe armed forces parLlcularly Lhe Marlnes Lo
ald Lhe n ln vlslblllLy paLrols ln Lhls regard Lhe l8 admlLs LhaL Lhe deploymenL
of Lhe mlllLary personnel falls under Lhe CommanderlnChlef powers of Lhe
resldenL as sLaLed ln SecLlon 18 ArLlcle vll of Lhe ConsLlLuLlon speclflcally Lhe
power Lo call ouL Lhe armed forces Lo prevenL or suppress lawless vlolence lnvaslon
or rebelllon WhaL Lhe l8 quesLlons however ls Lhe basls for Lhe calllng of Lhe
94

Marlnes under Lhe aforesLaLed provlslon Accordlng Lo Lhe l8 no emergency exlsLs
LhaL would [usLlfy Lhe need for Lhe calllng of Lhe mlllLary Lo asslsL Lhe pollce force lL
conLends LhaL no lawless vlolence lnvaslon or rebelllon exlsL Lo warranL Lhe calllng
of Lhe Marlnes 1hus Lhe l8 prays LhaL Lhls CourL revlew Lhe sufflclency of Lhe
facLual basls for sald Lroop Marlne deploymenL"
19

1he SollclLor Ceneral on Lhe oLher hand conLends LhaL Lhe lssue perLalnlng Lo Lhe
necesslLy of calllng Lhe armed forces ls noL proper for [udlclal scruLlny slnce lL
lnvolves a pollLlcal quesLlon and Lhe resoluLlon of facLual lssues whlch are beyond
Lhe revlew powers of Lhls CourL
As framed by Lhe parLles Lhe underlylng lssues are Lhe scope of presldenLlal powers
and llmlLs and Lhe exLenL of [udlclal revlew 8uL whlle Lhls CourL glves
conslderable welghL Lo Lhe parLles' formulaLlon of Lhe lssues Lhe resoluLlon of Lhe
conLroversy may warranL a creaLlve approach LhaL goes beyond Lhe narrow conflnes
of Lhe lssues ralsed 1hus whlle Lhe parLles are ln agreemenL LhaL Lhe power
exerclsed by Lhe resldenL ls Lhe power Lo call ouL Lhe armed forces Lhe CourL ls of
Lhe vlew LhaL Lhe power lnvolved may be no more Lhan Lhe malnLenance of peace
and order and promoLlon of Lhe general welfare
20
lor one Lhe reallLles on Lhe
ground do noL show LhaL Lhere exlsL a sLaLe of warfare wldespread clvll unresL or
anarchy Secondly Lhe full brunL of Lhe mlllLary ls noL broughL upon Lhe clLlzenry a
polnL dlscussed ln Lhe laLLer parL of Lhls declslon ln Lhe words of Lhe laLe !usLlce
lrene CorLes lnMotcos v Mooqlopos
More parLlcularly Lhls case calls for Lhe exerclse of Lhe resldenL's powers as
proLecLor of Lhe peace 8osslLer 1be Ametlcoo lteslJeocy 1he power of Lhe
resldenL Lo keep Lhe peace ls noL llmlLed merely Lo exerclslng Lhe commanderln
chlef powers ln Llmes of emergency or Lo leadlng Lhe SLaLe agalnsL exLernal and
lnLernal LhreaLs Lo lLs exlsLence 1he resldenL ls noL only cloLhed wlLh
exLraordlnary powers ln Llmes of emergency buL ls also Lasked wlLh aLLendlng Lo
Lhe dayLoday problems of malnLalnlng peace and order and ensurlng domesLlc
LranqulllLy ln Llmes when no forelgn foe appears on Lhe horlzon Wlde dlscreLlon
wlLhln Lhe bounds of law ln fulfllllng presldenLlal duLles ln Llmes of peace ls noL ln
any way dlmlnlshed by Lhe relaLlve wanL of an emergency speclfled ln Lhe
commanderlnchlef provlslon lor ln maklng Lhe resldenL commanderlnchlef Lhe
enumeraLlon of powers LhaL follow cannoL be sald Lo exclude Lhe resldenL's
exerclslng as CommanderlnChlef powers shorL of Lhe calllng of Lhe armed forces
or suspendlng Lhe prlvllege of Lhe wrlL of bobeos cotpos or declarlng marLlal law ln
order Lo keep Lhe peace and malnLaln publlc order and securlLy
xxx
21

noneLheless even lf lL ls conceded LhaL Lhe power lnvolved ls Lhe resldenL's power
Lo call ouL Lhe armed forces Lo prevenL or suppress lawless vlolence lnvaslon or
rebelllon Lhe resoluLlon of Lhe conLroversy wlll reach a slmllar resulL
We now address Lhe SollclLor Ceneral's argumenL LhaL Lhe lssue lnvolved ls noL
suscepLlble Lo revlew by Lhe [udlclary because lL lnvolves a pollLlcal quesLlon and
Lhus noL [usLlclable
As a general proposlLlon a conLroversy ls [usLlclable lf lL refers Lo a maLLer whlch ls
approprlaLe for courL revlew
22
lL perLalns Lo lssues whlch are lnherenLly
suscepLlble of belng declded on grounds recognlzed by law neverLheless Lhe CourL
does noL auLomaLlcally assume [urlsdlcLlon over acLual consLlLuLlonal cases broughL
before lL even ln lnsLances LhaL are rlpe for resoluLlon Cne class of cases whereln
Lhe CourL heslLaLes Lo rule on are pollLlcal quesLlons" 1he reason ls LhaL pollLlcal
quesLlons are concerned wlLh lssues dependenL upon Lhe wlsdom noL Lhe legallLy
of a parLlcular acL or measure belng assalled Moreover Lhe pollLlcal quesLlon
belng a funcLlon of Lhe separaLlon of powers Lhe courLs wlll noL normally lnLerfere
wlLh Lhe worklngs of anoLher coequal branch unless Lhe case shows a clear need
for Lhe courLs Lo sLep ln Lo uphold Lhe law and Lhe ConsLlLuLlon
As 1ooJo v coeoco
23
puLs lL pollLlcal quesLlons refer Lo Lhose quesLlons whlch
under Lhe ConsLlLuLlon are Lo be declded by Lhe people ln Lhelr soverelgn capaclLy
or ln regard Lo whlch full dlscreLlonary auLhorlLy has been delegaLed Lo Lhe
leglslaLlve or execuLlve branch of governmenL" 1hus lf an lssue ls clearly ldenLlfled
by Lhe LexL of Lhe ConsLlLuLlon as maLLers for dlscreLlonary acLlon by a parLlcular
branch of governmenL or Lo Lhe people Lhemselves Lhen lL ls held Lo be a pollLlcal
quesLlon ln Lhe classlc formulaLlon of !usLlce 8rennan ln 8oket v
cott
24
promlnenL on Lhe surface of any case held Lo lnvolve a pollLlcal quesLlon
ls found a LexLually demonsLrable consLlLuLlonal commlLmenL of Lhe lssue Lo a
coordlnaLe pollLlcal deparLmenL or a lack of [udlclally dlscoverable and manageable
sLandards for resolvlng lL or Lhe lmposslblllLy of decldlng wlLhouL an lnlLlal pollcy
deLermlnaLlon of a klnd clearly for non[udlclal dlscreLlon or Lhe lmposslblllLy of a
courL's underLaklng lndependenL resoluLlon wlLhouL expresslng lack of Lhe respecL
due coordlnaLe branches of governmenL or an unusual need for unquesLlonlng
adherence Lo a pollLlcal declslon already made or Lhe poLenLlallLy of embarassmenL
from mulLlfarlous pronouncemenLs by varlous deparLmenLs on Lhe one quesLlon"
1he 1987 ConsLlLuLlon expands Lhe concepL of [udlclal revlew by provldlng LhaL
(1)he !udlclal power shall be vesLed ln one Supreme CourL and ln such lower courLs
as may be esLabllshed by law !udlclal power lncludes Lhe duLy of Lhe courLs of
[usLlce Lo seLLle acLual conLroversles lnvolvlng rlghLs whlch are legally demandable
and enforceable and Lo deLermlne wheLher or noL Lhere has been a grave abuse of
dlscreLlon amounLlng Lo lack or excess of [urlsdlcLlon on Lhe parL of any branch or
lnsLrumenLallLy of Lhe CovernmenL"
23
under Lhls deflnlLlon Lhe CourL cannoL
agree wlLh Lhe SollclLor Ceneral LhaL Lhe lssue lnvolved ls a pollLlcal quesLlon
beyond Lhe [urlsdlcLlon of Lhls CourL Lo revlew When Lhe granL of power ls
quallfled condlLlonal or sub[ecL Lo llmlLaLlons Lhe lssue of wheLher Lhe prescrlbed
quallflcaLlons or condlLlons have been meL or Lhe llmlLaLlons respecLed ls
[usLlclable Lhe problem belng one of legallLy or valldlLy noL lLs
93

wlsdom
26
Moreover Lhe [urlsdlcLlon Lo dellmlL consLlLuLlonal boundarles has been
glven Lo Lhls CourL
27
When pollLlcal quesLlons are lnvolved Lhe ConsLlLuLlon llmlLs
Lhe deLermlnaLlon as Lo wheLher or noL Lhere has been a grave abuse of dlscreLlon
amounLlng Lo lack or excess of [urlsdlcLlon on Lhe parL of Lhe offlclal whose acLlon ls
belng quesLloned
28

8y grave abuse of dlscreLlon ls meanL slmply caprlclous or whlmslcal exerclse of
[udgmenL LhaL ls paLenL and gross as Lo amounL Lo an evaslon of poslLlve duLy or a
vlrLual refusal Lo perform a duLy en[olned by law or Lo acL aL all ln conLemplaLlon of
law as where Lhe power ls exerclsed ln an arblLrary and despoLlc manner by reason
of passlon or hosLlllLy
29
under Lhls deflnlLlon a courL ls wlLhouL power Lo dlrecLly
declde maLLers over whlch full dlscreLlonary auLhorlLy has been delegaLed 8uL
whlle Lhls CourL has no power Lo subsLlLuLe lLs [udgmenL for LhaL of Congress or of
Lhe resldenL lL may look lnLo Lhe quesLlon of wheLher such exerclse has been
made ln grave abuse of dlscreLlon
30
A showlng LhaL plenary power ls granLed
elLher deparLmenL of governmenL may noL be an obsLacle Lo [udlclal lnqulry for
Lhe lmprovldenL exerclse or abuse Lhereof may glve rlse Lo [usLlclable
conLroversy
31

When Lhe resldenL calls Lhe armed forces Lo prevenL or suppress lawless vlolence
lnvaslon or rebelllon he necessarlly exerclses a dlscreLlonary power solely vesLed ln
hls wlsdom 1hls ls clear from Lhe lnLenL of Lhe framers and from Lhe LexL of Lhe
ConsLlLuLlon lLself 1he CourL Lhus cannoL be called upon Lo overrule Lhe
resldenL's wlsdom or subsLlLuLe lLs own Powever Lhls does noL prevenL an
examlnaLlon of wheLher such power was exerclsed wlLhln permlsslble consLlLuLlonal
llmlLs or wheLher lL was exerclsed ln a manner consLlLuLlng grave abuse of
dlscreLlon ln vlew of Lhe consLlLuLlonal lnLenL Lo glve Lhe resldenL full
dlscreLlonary power Lo deLermlne Lhe necesslLy of calllng ouL Lhe armed forces lL ls
lncumbenL upon Lhe peLlLloner Lo show LhaL Lhe resldenL's declslon ls LoLally
berefL of facLual basls 1he presenL peLlLlon falls Lo dlscharge such heavy burden as
Lhere ls no evldence Lo supporL Lhe asserLlon LhaL Lhere exlsL no [usLlflcaLlon for
calllng ouL Lhe armed forces 1here ls llkewlse no evldence Lo supporL Lhe
proposlLlon LhaL grave abuse was commlLLed because Lhe power Lo call was
exerclsed ln such a manner as Lo vlolaLe Lhe consLlLuLlonal provlslon on clvlllan
supremacy over Lhe mlllLary ln Lhe performance of Lhls CourL's duLy of purposeful
heslLaLlon"
32
before declarlng an acL of anoLher branch as unconsLlLuLlonal only
where such grave abuse of dlscreLlon ls clearly shown shall Lhe CourL lnLerfere wlLh
Lhe resldenL's [udgmenL 1o doubL ls Lo susLaln
1here ls a clear LexLual commlLmenL under Lhe ConsLlLuLlon Lo besLow on Lhe
resldenL full dlscreLlonary power Lo call ouL Lhe armed forces and Lo deLermlne Lhe
necesslLy for Lhe exerclse of such power SecLlon 18 ArLlcle vll of Lhe ConsLlLuLlon
whlch embodles Lhe powers of Lhe resldenL as CommanderlnChlef provldes ln
parL
1he resldenL shall be Lhe CommanderlnChlef of all armed forces of Lhe
hlllpplnes and whenever lL becomes necessary he may call ouL such armed forces
Lo prevenL or suppress lawless vlolence lnvaslon or rebelllon ln case of lnvaslon or
rebelllon when Lhe publlc safeLy requlres lL he may for a perlod noL exceedlng
slxLy days suspend Lhe prlvllege of Lhe wrlL of bobeos cotpos or place Lhe
hlllpplnes or any parL Lhereof under marLlal law
x x x
1he full dlscreLlonary power of Lhe resldenL Lo deLermlne Lhe facLual basls for Lhe
exerclse of Lhe calllng ouL power ls also lmplled and furLher relnforced ln Lhe resL of
SecLlon 18 ArLlcle vll whlch reads Lhus
x x x
WlLhln forLyelghL hours from Lhe proclamaLlon of marLlal law or Lhe suspenslon of
Lhe prlvllege of Lhe wrlL of bobeos cotpos Lhe resldenL shall submlL a reporL ln
person or ln wrlLlng Lo Lhe Congress 1he Congress voLlng [olnLly by a voLe of aL
leasL a ma[orlLy of all lLs Members ln regular or speclal sesslon may revoke such
proclamaLlon or suspenslon whlch revocaLlon shall noL be seL aslde by Lhe
resldenL upon Lhe lnlLlaLlve of Lhe resldenL Lhe Congress may ln Lhe same
manner exLend such proclamaLlon or suspenslon for a perlod Lo be deLermlned by
Lhe Congress lf Lhe lnvaslon or rebelllon shall perslsL and publlc safeLy requlres lL
1he Congress lf noL ln sesslon shall wlLhln LwenLyfour hours followlng such
proclamaLlon or suspenslon convene ln accordance wlLh lLs rules wlLhouL need of a
call
1he Supreme CourL may revlew ln an approprlaLe proceedlng flled by any clLlzen
Lhe sufflclency of Lhe facLual basls of Lhe proclamaLlon of marLlal law or Lhe
suspenslon of Lhe prlvllege of Lhe wrlL or Lhe exLenslon Lhereof and musL
promulgaLe lLs declslon Lhereon wlLhln LhlrLy days from lLs flllng
A sLaLe of marLlal law does noL suspend Lhe operaLlon of Lhe ConsLlLuLlon nor
supplanL Lhe funcLlonlng of Lhe clvll courLs or leglslaLlve assemblles nor auLhorlze
Lhe confermenL of [urlsdlcLlon on mlllLary courLs and agencles over clvlllans where
clvll courLs are able Lo funcLlon nor auLomaLlcally suspend Lhe prlvllege of Lhe wrlL
1he suspenslon of Lhe prlvllege of Lhe wrlL shall apply only Lo persons [udlclally
charged for rebelllon or offenses lnherenL ln or dlrecLly connecLed wlLh lnvaslon
uurlng Lhe suspenslon of Lhe prlvllege of Lhe wrlL any person Lhus arresLed or
deLalned shall be [udlclally charged wlLhln Lhree days oLherwlse he shall be
released
under Lhe foregolng provlslons Congress may revoke such proclamaLlon or
suspenslon and Lhe CourL may revlew Lhe sufflclency of Lhe facLual basls
Lhereof Powever Lhere ls no such equlvalenL provlslon deallng wlLh Lhe revocaLlon
or revlew of Lhe resldenL's acLlon Lo call ouL Lhe armed forces 1he dlsLlncLlon
places Lhe calllng ouL power ln a dlfferenL caLegory from Lhe power Lo declare
marLlal law and Lhe power Lo suspend Lhe prlvllege of Lhe wrlL of bobeos cotpos
oLherwlse Lhe framers of Lhe ConsLlLuLlon would have slmply lumped LogeLher Lhe
96

Lhree powers and provlded for Lhelr revocaLlon and revlew wlLhouL any
quallflcaLlon xptesslo oolos est excloslo oltetlos Where Lhe Lerms are expressly
llmlLed Lo cerLaln maLLers lL may noL by lnLerpreLaLlon or consLrucLlon be
exLended Lo oLher maLLers
33
1haL Lhe lnLenL of Lhe ConsLlLuLlon ls exacLly whaL lLs
leLLer says le LhaL Lhe power Lo call ls fully dlscreLlonary Lo Lhe resldenL ls exLanL
ln Lhe dellberaLlon of Lhe ConsLlLuLlonal Commlsslon Lo wlL
l8 8L8nAS lL wlll noL make any dlfference l may add LhaL Lhere ls a graduaLed
power of Lhe resldenL as CommanderlnChlef llrsL he can call ouL such Armed
lorces as may be necessary Lo suppress lawless vlolence Lhen he can suspend Lhe
prlvllege of Lhe wrlL of bobeos cotpos Lhen he can lmpose marLlal law 1hls ls a
graduaLed sequence
When he [udges LhaL lL ls necessary Lo lmpose marLlal law or suspend Lhe prlvllege
of Lhe wrlL of bobeos cotpos hls [udgmenL ls sub[ecL Lo revlew We are maklng lL
sub[ecL Lo revlew by Lhe Supreme CourL and sub[ecL Lo concurrence by Lhe naLlonal
Assembly 8uL when he exerclses Lhls lesser power of calllng on Lhe Armed lorces
when he says lL ls necessary lL ls my oplnlon LhaL hls [udgmenL cannoL be revlewed
by anybody
x x x
l8 8L8nAS LeL me [usL add LhaL when we only have lmmlnenL danger Lhe maLLer
can be handled by Lhe flrsL senLence 1he resldenL may call ouL such armed forces
Lo prevenL or suppress lawless vlolence lnvaslon or rebelllon" So we feel LhaL LhaL
ls sufflclenL for handllng lmmlnenL danger
M8 uL LCS 8L?LS So acLually lf a resldenL feels LhaL Lhere ls lmmlnenL danger
Lhe maLLer can be handled by Lhe llrsL SenLence 1he resldenLmay call ouL such
Armed lorces Lo prevenL or suppress lawless vlolence lnvaslon or rebelllon" So we
feel LhaL LhaL ls sufflclenL for handllng lmmlnenL danger of lnvaslon or rebelllon
lnsLead of lmposlng marLlal law or suspendlng Lhe wrlL of bobeos cotpos he musL
necessarlly have Lo call Lhe Armed lorces of Lhe hlllpplnes as Lhelr Commanderln
Chlef ls LhaL Lhe ldea?
M8 8LCALAuC 1haL does noL requlre any concurrence by Lhe leglslaLure nor ls lL
sub[ecL Lo [udlclal revlew
34

1he reason for Lhe dlfference ln Lhe LreaLmenL of Lhe aforemenLloned powers
hlghllghLs Lhe lnLenL Lo granL Lhe resldenL Lhe wldesL leeway and broadesL
dlscreLlon ln uslng Lhe power Lo call ouL because lL ls consldered as Lhe lesser and
more benlgn power compared Lo Lhe power Lo suspend Lhe prlvllege of Lhe wrlL
of bobeos cotpos and Lhe power Lo lmpose marLlal law boLh of whlch lnvolve Lhe
curLallmenL and suppresslon of cerLaln baslc clvll rlghLs and lndlvldual freedoms
and Lhus necesslLaLlng safeguards by Congress and revlew by Lhls CourL
Moreover under SecLlon 18 ArLlcle vll of Lhe ConsLlLuLlon ln Lhe exerclse of Lhe
power Lo suspend Lhe prlvllege of Lhe wrlL of bobeos cotpos or Lo lmpose marLlal
law Lwo condlLlons musL concur (1) Lhere musL be an acLual lnvaslon or rebelllon
and (2) publlc safeLy musL requlre lL 1hese condlLlons are noL requlred ln Lhe case
of Lhe power Lo call ouL Lhe armed forces 1he only crlLerlon ls LhaL whenever lL
becomes necessary" Lhe resldenL may call Lhe armed forces Lo prevenL or
suppress lawless vlolence lnvaslon or rebelllon 1he lmpllcaLlon ls LhaL Lhe
resldenL ls glven full dlscreLlon and wlde laLlLude ln Lhe exerclse of Lhe power Lo
call as compared Lo Lhe Lwo oLher powers
lf Lhe peLlLloner falls by way of proof Lo supporL Lhe asserLlon LhaL Lhe resldenL
acLed wlLhouL facLual basls Lhen Lhls CourL cannoL underLake an lndependenL
lnvesLlgaLlon beyond Lhe pleadlngs 1he facLual necesslLy of calllng ouL Lhe armed
forces ls noL easlly quanLlflable and cannoL be ob[ecLlvely esLabllshed slnce maLLers
consldered for saLlsfylng Lhe same ls a comblnaLlon of several facLors whlch are noL
always accesslble Lo Lhe courLs 8esldes Lhe absence of LexLual sLandards LhaL Lhe
courL may use Lo [udge necesslLy lnformaLlon necessary Lo arrlve aL such [udgmenL
mlghL also prove unmanageable for Lhe courLs CerLaln perLlnenL lnformaLlon mlghL
be dlfflculL Lo verlfy or wholly unavallable Lo Lhe courLs ln many lnsLances Lhe
evldence upon whlch Lhe resldenL mlghL declde LhaL Lhere ls a need Lo call ouL Lhe
armed forces may be of a naLure noL consLlLuLlng Lechnlcal proof
Cn Lhe oLher hand Lhe resldenL as CommanderlnChlef has a vasL lnLelllgence
neLwork Lo gaLher lnformaLlon some of whlch may be classlfled as hlghly
confldenLlal or affecLlng Lhe securlLy of Lhe sLaLe ln Lhe exerclse of Lhe power Lo
call onLhespoL declslons may be lmperaLlvely necessary ln emergency slLuaLlons
Lo averL greaL loss of human llves and mass desLrucLlon of properLy lndeed Lhe
declslon Lo call ouL Lhe mlllLary Lo prevenL or suppress lawless vlolence musL be
done swlfLly and declslvely lf lL were Lo have any effecL aL all Such a scenarlo ls noL
farfeLched when we conslder Lhe presenL slLuaLlon ln Mlndanao where Lhe
lnsurgency problem could splll over Lhe oLher parLs of Lhe counLry 1he
deLermlnaLlon of Lhe necesslLy for Lhe calllng ouL power lf sub[ecLed Lo unfeLLered
[udlclal scruLlny could be a verlLable prescrlpLlon for dlsasLer as such power may be
unduly sLralL[ackeLed by an ln[uncLlon or a Lemporary resLralnlng order every Llme lL
ls exerclsed
1hus lL ls Lhe unclouded lnLenL of Lhe ConsLlLuLlon Lo vesL upon Lhe resldenL as
CommanderlnChlef of Lhe Armed lorces full dlscreLlon Lo call forLh Lhe mlllLary
when ln hls [udgmenL lL ls necessary Lo do so ln order Lo prevenL or suppress lawless
vlolence lnvaslon or rebelllon unless Lhe peLlLloner can show LhaL Lhe exerclse of
such dlscreLlon was gravely abused Lhe resldenL's exerclse of [udgmenL deserves
Lo be accorded respecL from Lhls CourL
1he resldenL has already deLermlned Lhe necesslLy and facLual basls for calllng Lhe
armed forces ln hls Memorandum he caLegorlcally asserLed LhaL vlolenL crlmes
llke bank/sLore robberles holdups kldnapplngs and carnapplngs conLlnue Lo occur
ln MeLro Manlla"
33
We do noL doubL Lhe veraclLy of Lhe resldenL's assessmenL
of Lhe slLuaLlon especlally ln Lhe llghL of presenL developmenLs 1he CourL Lakes
[udlclal noLlce of Lhe recenL bomblngs perpeLraLed by lawless elemenLs ln Lhe
shopplng malls publlc uLlllLles and oLher publlc places 1hese are among Lhe areas
97

of deploymenL descrlbed ln Lhe LCl 2000 Conslderlng all Lhese facLs we hold LhaL
Lhe resldenL has sufflclenL facLual basls Lo call for mlllLary ald ln law enforcemenL
and ln Lhe exerclse of Lhls consLlLuLlonal power
@he dep/oyment of the Morines does not vio/ote the civi/ion supremocy c/ouse nor
does it infrinqe the civi/ion chorocter of the po/ice force
resclndlng from lLs argumenL LhaL no emergency slLuaLlon exlsLs Lo [usLlfy Lhe
calllng of Lhe Marlnes Lhe l8 asserLs LhaL by Lhe deploymenL of Lhe Marlnes Lhe
clvlllan Lask of law enforcemenL ls mlllLarlzed" ln vlolaLlon of SecLlon 3 ArLlcle
ll
36
of Lhe ConsLlLuLlon
We dlsagree 1he deploymenL of Lhe Marlnes does noL consLlLuLe a breach of Lhe
clvlllan supremacy clause 1he calllng of Lhe Marlnes ln Lhls case consLlLuLes
permlsslble use of mlllLary asseLs for clvlllan law enforcemenL 1he parLlclpaLlon of
Lhe Marlnes ln Lhe conducL of [olnL vlslblllLy paLrols ls approprlaLely
clrcumscrlbed 1he llmlLed parLlclpaLlon of Lhe Marlnes ls evldenL ln Lhe provlslons
of Lhe LCl lLself whlch sufflclenLly provldes Lhe meLes and bounds of Lhe Marlnes'
auLhorlLy lL ls noLeworLhy LhaL Lhe local pollce forces are Lhe ones ln charge of Lhe
vlslblllLy paLrols aL all Llmes Lhe real auLhorlLy belonglng Lo Lhe n ln facL Lhe
MeLro Manlla ollce Chlef ls Lhe overall leader of Lhe nhlllpplne Marlnes [olnL
vlslblllLy paLrols
37
under Lhe LCl Lhe pollce forces are Lasked Lo brlef or orlenL Lhe
soldlers on pollce paLrol procedures
38
lL ls Lhelr responslblllLy Lo dlrecL and
manage Lhe deploymenL of Lhe Marlnes
39
lL ls llkewlse Lhelr duLy Lo provlde Lhe
necessary equlpmenL Lo Lhe Marlnes and render loglsLlcal supporL Lo Lhese
soldlers
40
ln vlew of Lhe foregolng lL cannoL be properly argued LhaL mlllLary
auLhorlLy ls supreme over clvlllan auLhorlLy Moreover Lhe deploymenL of Lhe
Marlnes Lo asslsL Lhe n does noL unmake Lhe clvlllan characLer of Lhe pollce
force nelLher does lL amounL Lo an lnsldlous lncurslon" of Lhe mlllLary ln Lhe Lask
of law enforcemenL ln vlolaLlon of SecLlon 3(4) ArLlcle xvl of Lhe ConsLlLuLlon
41

ln Lhls regard lL ls noL correcL Lo say LhaL Ceneral Angelo 8eyes Chlef of SLaff of Lhe
Al by hls alleged lnvolvemenL ln clvlllan law enforcemenL has been vlrLually
appolnLed Lo a clvlllan posL ln derogaLlon of Lhe aforeclLed provlslon 1he real
auLhorlLy ln Lhese operaLlons as sLaLed ln Lhe LCl ls lodged wlLh Lhe head of a
clvlllan lnsLlLuLlon Lhe n and noL wlLh Lhe mlllLary Such belng Lhe case lL does
noL maLLer wheLher Lhe Al Chlef acLually parLlclpaLes ln Lhe 1ask
lorce 1olooqoo slnce he does noL exerclse any auLhorlLy or conLrol over Lhe
same Slnce none of Lhe Marlnes was lncorporaLed or enllsLed as members of Lhe
n Lhere can be no appolnLmenL Lo clvlllan poslLlon Lo speak of Pence Lhe
deploymenL of Lhe Marlnes ln Lhe [olnL vlslblllLy paLrols does noL desLroy Lhe clvlllan
characLer of Lhe n
Conslderlng Lhe above clrcumsLances Lhe Marlnes render noLhlng more Lhan
asslsLance requlred ln conducLlng Lhe paLrols As such Lhere can be no lnsldlous
lncurslon" of Lhe mlllLary ln clvlllan affalrs nor can Lhere be a vlolaLlon of Lhe clvlllan
supremacy clause ln Lhe ConsLlLuLlon
lL ls worLh menLlonlng LhaL mlllLary asslsLance Lo clvlllan auLhorlLles ln varlous
forms perslsLs ln hlllpplne [urlsdlcLlon 1he hlllpplne experlence reveals LhaL lL ls
noL averse Lo requesLlng Lhe asslsLance of Lhe mlllLary ln Lhe lmplemenLaLlon and
execuLlon of cerLaln LradlLlonally clvll" funcLlons As correcLly polnLed ouL by Lhe
SollclLor Ceneral some of Lhe mulLlfarlous acLlvlLles whereln mlllLary ald has been
rendered exempllfylng Lhe acLlvlLles LhaL brlng boLh Lhe clvlllan and Lhe mlllLary
LogeLher ln a relaLlonshlp of cooperaLlon are
1 LlecLlons
42

2 AdmlnlsLraLlon of Lhe hlllpplne naLlonal 8ed Cross
43

3 8ellef and rescue operaLlons durlng calamlLles and dlsasLers
44

4 AmaLeur sporLs promoLlon and developmenL
43

3 uevelopmenL of Lhe culLure and Lhe arLs
46

6 ConservaLlon of naLural resources
47

7 lmplemenLaLlon of Lhe agrarlan reform program
48

8 LnforcemenL of cusLoms laws
49

9 ComposlLe clvlllanmlllLary law enforcemenL acLlvlLles
30

10 ConducL of llcensure examlnaLlons
31

11 ConducL of naLlonwlde LesLs for elemenLary and hlgh school sLudenLs
32

12 AnLldrug enforcemenL acLlvlLles
33

13 SanlLary lnspecLlons
34

14 ConducL of census work
33

13 AdmlnlsLraLlon of Lhe Clvll AeronauLlcs 8oard
36

16 AsslsLance ln lnsLallaLlon of weaLher forecasLlng devlces
37

17 eace and order pollcy formulaLlon ln local governmenL unlLs
38

1hls unquesLlonably consLlLuLes a gloss on execuLlve power resulLlng from a
sysLemaLlc unbroken execuLlve pracLlce long pursued Lo Lhe knowledge of
Congress and yeL never before quesLloned
39
WhaL we have here ls muLual
supporL and cooperaLlon beLween Lhe mlllLary and clvlllan auLhorlLles noL
derogaLlon of clvlllan supremacy
ln Lhe unlLed SLaLes where a long LradlLlon of susplclon and hosLlllLy Lowards Lhe
use of mlllLary force for domesLlc purposes has perslsLed
60
and whose
ConsLlLuLlon unllke ours does noL expressly provlde for Lhe power Lo call Lhe use
of mlllLary personnel by clvlllan law enforcemenL offlcers ls allowed under
clrcumsLances slmllar Lo Lhose surroundlng Lhe presenL deploymenL of Lhe
hlllpplne Marlnes under Lhe losse comltotos AcL
61
of Lhe uS Lhe use of Lhe
mlllLary ln clvlllan law enforcemenL ls generally prohlblLed excepL ln cerLaln
allowable clrcumsLances A provlslon of Lhe AcL sLaLes
1383 use of Army and Alr lorce as posse comltotos
Whoever excepL ln cases and under clrcumsLances expressly auLhorlzed by Lhe
ConsLlLuLlon or AcL of Congress wlllfully uses any parL of Lhe Army or Lhe Alr lorce
as posse comltotos or oLherwlse Lo execuLe Lhe laws shall be flned noL more Lhan
$10000 or lmprlsoned noL more Lhan Lwo years or boLh
62

98

1o deLermlne wheLher Lhere ls a vlolaLlon of Lhe losse comltotos AcL ln Lhe use of
mlllLary personnel Lhe uS courLs
63
apply Lhe followlng sLandards Lo wlL
Were Army or Alr lorce personnel used by Lhe clvlllan law enforcemenL offlcers aL
Wounded knee ln such a manner LhaL Lhe mlllLary personnel sub[ecLed Lhe clLlzens
Lo Lhe exerclse of mlllLary power whlch was regulaLory proscrlpLlve or
compulsory
64
Ceorge WashlngLon Law 8evlew pp 404433 (1986) whlch
dlscusses Lhe four dlvergenL sLandards for assesslng accepLable lnvolvemenL of
mlllLary personnel ln clvll law enforcemenL 5ee llkewlse PCnC8Lu ln 1PL 88LLCP
8LSluLn1lAL Au1PC8l1? 1C LxLCu1L 1PL LAWS Wl1P MlLl1A8? lC8CL 83 ?ale
Law !ournal pp 130132 1973 64 ln naLure elLher presenLly or prospecLlvely?
x x x
When Lhls concepL ls LransplanLed lnLo Lhe presenL legal conLexL we Lake lL Lo mean
LhaL mlllLary lnvolvemenL even when noL expressly auLhorlzed by Lhe ConsLlLuLlon
or a sLaLuLe does noL vlolaLe Lhe osse ComlLaLus AcL unless lL acLually regulaLes
forblds or compels some conducL on Lhe parL of Lhose clalmlng rellef A mere LhreaL
of some fuLure ln[ury would be lnsufflclenL (emphasls supplled)
Lven lf Lhe CourL were Lo apply Lhe above rlgld sLandards Lo Lhe presenL case Lo
deLermlne wheLher Lhere ls permlsslble use of Lhe mlllLary ln clvlllan law
enforcemenL Lhe concluslon ls lnevlLable LhaL no vlolaLlon of Lhe clvlllan supremacy
clause ln Lhe ConsLlLuLlon ls commlLLed Cn Lhls polnL Lhe CourL agrees wlLh Lhe
observaLlon of Lhe SollclLor Ceneral
3 1he deslgnaLlon of Lasks ln Annex A
63
does noL consLlLuLe Lhe exerclse of
regulaLory proscrlpLlve or compulsory mlllLary power llrsL Lhe soldlers do noL
conLrol or dlrecL Lhe operaLlon 1hls ls evldenL from nos 6
66
8(k)
67
and 9(a)
68
of
Annex A 1hese soldlers second also have no power Lo prohlblL or condemn ln
no 9(d)
69
of Annex A all arresLed persons are broughL Lo Lhe nearesL pollce
sLaLlons for proper dlsposlLlon And lasL Lhese soldlers apply no coerclve
force 1he maLerlals or equlpmenL lssued Lo Lhem as shown ln no 8(c)
70
of Annex
A are all low lmpacL and defenslve ln characLer 1he concluslon ls LhaL Lhere belng
no exerclse of regulaLory proscrlpLlve or compulsory mlllLary power Lhe
deploymenL of a handful of hlllpplne Marlnes consLlLuLes no lmpermlsslble use of
mlllLary power for clvlllan law enforcemenL
71

lL appears LhaL Lhe presenL peLlLlon ls anchored on fear LhaL once Lhe armed forces
are deployed Lhe mlllLary wlll galn ascendancy and Lhus place ln perll our
cherlshed llberLles Such apprehenslons however are unfounded 1he power Lo
call Lhe armed forces ls [usL LhaL calllng ouL Lhe armed forces unless peLlLloner
l8 can show whlch lL has noL LhaL ln Lhe deploymenL of Lhe Marlnes Lhe
resldenL has vlolaLed Lhe fundamenLal law exceeded hls auLhorlLy or [eopardlzed
Lhe clvll llberLles of Lhe people Lhls CourL ls noL lncllned Lo overrule Lhe resldenL's
deLermlnaLlon of Lhe facLual basls for Lhe calllng of Lhe Marlnes Lo prevenL or
suppress lawless vlolence
Cne lasL polnL Slnce Lhe lnsLlLuLlon of Lhe [olnL vlslblllLy paLrol ln !anuary 2000 noL
a slngle clLlzen has complalned LhaL hls pollLlcal or clvll rlghLs have been vlolaLed as
a resulL of Lhe deploymenL of Lhe Marlnes lL was preclsely Lo safeguard peace
LranqulllLy and Lhe clvll llberLles of Lhe people LhaL Lhe [olnL vlslblllLy paLrol was
concelved lreedom and democracy wlll be ln full bloom only when people feel
secure ln Lhelr homes and ln Lhe sLreeLs noL when Lhe shadows of vlolence and
anarchy consLanLly lurk ln Lhelr mldsL
JLkLICkL premlses consldered Lhe peLlLlon ls hereby ulSMlSSLu


Ln 8AnC
Gk No 1S9139 Ianuary 13 2004
INICkMA1ICN 1LCNCLCG ICUNDA1ICN CI 1L 9ILI99INLS MA CCkA2CN
M AkCL MIGULL U LDUAkDC LC9L2 AUGUS1C C LAGMAN kLk C DkILCN
MIGULL ILADC LL SALCLDC and MANULL ALCUA2 Ik petitioners
vs CCMMISSICN CN LLLC1ICNS CCMLLLC CAIkMAN 8LNIAMIN A8ALCS Sk
CCMLLLC 8IDDING and AJAkD CCMMI11LL CAIkMAN LDUAkDC D MLICS and
MLM8LkS GIDLCN DL GU2MAN ICSL I 8AL8ULNA LAM8Lk1C 9 LLAMAS and
8Ak1CLCML SINCCkU2 Ik MLGA 9ACIIIC eSCLU1ICNS INC and MLGA 9ACIIIC
CCNSCk1IUM respondents
D L C I S I C N
9ANGANI8AN
1here ls grave abuse of dlscreLlon (1) when an acL ls done conLrary Lo Lhe
ConsLlLuLlon Lhe law or [urlsprudence
1
or (2) when lL ls execuLed whlmslcally
caprlclously or arblLrarlly ouL of mallce lll wlll or personal blas
2
ln Lhe presenL
case Lhe Commlsslon on LlecLlons approved Lhe assalled 8esoluLlon and awarded
Lhe sub[ecL ConLracL noL only ln clear vlolaLlon of law and [urlsprudence buL also ln
reckless dlsregard of lLs own blddlng rules and procedure lor Lhe auLomaLlon of
Lhe counLlng and canvasslng of Lhe balloLs ln Lhe 2004 elecLlons Comelec awarded
Lhe ConLracL Lo Mega aclflc ConsorLlum" an enLlLy LhaL had noL parLlclpaLed ln Lhe
blddlng uesplLe Lhls granL Lhe poll body slgned Lhe acLual auLomaLlon ConLracL
wlLh Mega aclflc eSoluLlons lnc" a company LhaL [olned Lhe blddlng buL had noL
meL Lhe ellglblllLy requlremenLs
Comelec awarded Lhls bllllonpeso underLaklng wlLh lnexpllcable hasLe wlLhouL
adequaLely checklng and observlng mandaLory flnanclal Lechnlcal and legal
requlremenLs lL also accepLed Lhe proferred compuLer hardware and sofLware
even lf aL Lhe Llme of Lhe award Lhey had undenlably falled Lo pass elghL crlLlcal
requlremenLs deslgned Lo safeguard Lhe lnLegrlLy of elecLlons especlally Lhe
followlng Lhree lLems
1hey falled Lo achleve Lhe accuracy raLlng crlLerla of 999993 percenL seLup
by Lhe Comelec lLself
99

1hey were noL able Lo deLecL prevlously downloaded resulLs aL varlous
canvasslng or consolldaLlon levels and Lo prevenL Lhese from belng lnpuLLed agaln
1hey were unable Lo prlnL Lhe sLaLuLorlly requlred audlL Lralls of Lhe
counL/canvass aL dlfferenL levels wlLhouL any loss of daLa
8ecause of Lhe foregolng vlolaLlons of law and Lhe glarlng grave abuse of dlscreLlon
commlLLed by Comelec Lhe CourL has no cholce buL Lo exerclse lLs solemn
consLlLuLlonal duLy"
3
Lo vold Lhe assalled 8esoluLlon and Lhe sub[ecL
ConLracL 1he lllegal lmprudenL and hasLy acLlons of Lhe Commlsslon have noL only
desecraLed legal and [urlsprudenLlal norms buL have also casL serlous doubLs upon
Lhe poll body's ablllLy and capaclLy Lo conducL auLomaLed elecLlons 1ruly Lhe plLh
and soul of democracy credlble orderly and peaceful elecLlons has been puL ln
[eopardy by Lhe lllegal and gravely abuslve acLs of Comelec
1he Case
8efore us ls a eLlLlon
4
under 8ule 63 of Lhe 8ules of CourL seeklng (1) Lo declare
null and vold 8esoluLlon no 6074 of Lhe Commlsslon on LlecLlons (Comelec) whlch
awarded hase ll of Lhe ModernlzaLlon ro[ecL of Lhe Commlsslon Lo Mega aclflc
ConsorLlum (MC)" (2) Lo en[oln Lhe lmplemenLaLlon of any furLher conLracL LhaL
may have been enLered lnLo by Comelec elLher wlLh Mega aclflc ConsorLlum
and/or Mega aclflc eSoluLlons lnc (MLl)" and (3) Lo compel Comelec Lo conducL
a reblddlng of Lhe pro[ecL
1he Iacts
1he followlng facLs are noL dlspuLed 1hey were culled from offlclal documenLs Lhe
parLles' pleadlngs as well as from admlsslons durlng Lhe Cral ArgumenL on CcLober
7 2003
Cn !une 7 1993 Congress passed 8epubllc AcL 8046
3
whlch auLhorlzed Comelec
Lo conducL a naLlonwlde demonsLraLlon of a compuLerlzed elecLlon sysLem and
allowed Lhe poll body Lo plloLLesL Lhe sysLem ln Lhe March 1996 elecLlons ln Lhe
AuLonomous 8eglon ln Musllm Mlndanao (A8MM)
Cn uecember 22 1997 Congress enacLed 8epubllc AcL 8436
6
auLhorlzlng Comelec
Lo use an auLomaLed elecLlon sysLem (ALS) for Lhe process of voLlng counLlng voLes
and canvasslng/consolldaLlng Lhe resulLs of Lhe naLlonal and local elecLlons lL also
mandaLed Lhe poll body Lo acqulre auLomaLed counLlng machlnes (ACMs)
compuLer equlpmenL devlces and maLerlals and Lo adopL new elecLoral forms and
prlnLlng maLerlals
lnlLlally lnLendlng Lo lmplemenL Lhe auLomaLlon durlng Lhe May 11 1998
presldenLlal elecLlons Comelec ln lLs 8esoluLlon no 2983 daLed lebruary 9
1998
7
evenLually declded agalnsL full naLlonal lmplemenLaLlon and llmlLed Lhe
auLomaLlon Lo Lhe AuLonomous 8eglon ln Musllm Mlndanao (A8MM) Powever
due Lo Lhe fallure of Lhe machlnes Lo read correcLly some auLomaLed balloLs ln one
Lown Lhe poll body laLer ordered Lhelr manual counL for Lhe enLlre rovlnce of
Sulu
8

ln Lhe May 2001 elecLlons Lhe counLlng and canvasslng of voLes for boLh naLlonal
and local poslLlons were also done manually as no addlLlonal ACMs had been
acqulred for LhaL elecLoral exerclse allegedly because of Llme consLralnLs
Cn CcLober 29 2002 Comelec adopLed ln lLs 8esoluLlon 020170 a modernlzaLlon
program for Lhe 2004 elecLlons lL resolved Lo conducL blddlngs for Lhe Lhree (3)
phases of lLs AuLomaLed LlecLlon SysLem namely hase l voLer 8eglsLraLlon and
valldaLlon SysLem hase ll AuLomaLed CounLlng and Canvasslng SysLem and
hase lll LlecLronlc 1ransmlsslon
Cn !anuary 24 2003 resldenL Clorla MacapagalArroyo lssued LxecuLlve Crder no
172 whlch allocaLed Lhe sum of 23 bllllon Lo fund Lhe ALS for Lhe May 10 2004
elecLlons upon Lhe requesL of Comelec she auLhorlzed Lhe release of an
addlLlonal 300 mllllon
Cn !anuary 28 2003 Lhe Commlsslon lssued an lnvlLaLlon Lo Apply for LllglblllLy
and Lo 8ld" whlch we quoLe as follows
lnvl1A1lCn 1C AL? lC8 LLlCl8lLl1? Anu 1C 8lu
1he Commlsslon on LlecLlons (CCMLLLC) pursuanL Lo Lhe mandaLe of 8epubllc AcL
nos 8189 and 8436 lnvlLes lnLeresLed offerors vendors suppllers or lessors Lo
apply for ellglblllLy and Lo bld for Lhe procuremenL by purchase lease lease wlLh
opLlon Lo purchase or oLherwlse supplles equlpmenL maLerlals and servlces
needed for a comprehenslve AuLomaLed LlecLlon SysLem conslsLlng of Lhree (3)
phases (a) reglsLraLlon/verlflcaLlon of voLers (b) auLomaLed counLlng and
consolldaLlon of voLes and (c) elecLronlc Lransmlsslon of elecLlon resulLs wlLh an
approved budgeL of 1WC 8lLLlCn llvL Punu8Lu MlLLlCn (hp2300000000)
esos
Cnly blds from Lhe followlng enLlLles shall be enLerLalned
a uuly llcensed llllplno clLlzens/proprleLorshlps
b arLnershlps duly organlzed under Lhe laws of Lhe hlllpplnes and of whlch aL
leasL slxLy percenL (60) of Lhe lnLeresL belongs Lo clLlzens of Lhe hlllpplnes
c CorporaLlons duly organlzed under Lhe laws of Lhe hlllpplnes and of whlch
aL leasL slxLy percenL (60) of Lhe ouLsLandlng caplLal sLock belongs Lo clLlzens of
Lhe hlllpplnes
d ManufacLurers suppllers and/or dlsLrlbuLors formlng Lhemselves lnLo a [olnL
venLure le a group of Lwo (2) or more manufacLurers suppllers and/or
dlsLrlbuLors LhaL lnLend Lo be [olnLly and severally responslble or llable for a
parLlcular conLracL provlded LhaL llllplno ownershlp Lhereof shall be aL leasL slxLy
percenL (60) and
e CooperaLlves duly reglsLered wlLh Lhe CooperaLlves uevelopmenL AuLhorlLy
8ld documenLs for Lhe Lhree (3) phases may be obLalned sLarLlng 10 lebruary 2003
durlng offlce hours from Lhe 8lds and Awards CommlLLee (8AC) SecreLarlaL/Cfflce
of Commlssloner 8esurrecclon Z 8orra 7
Lh
lloor alaclo del Covernador
lnLramuros Manlla upon paymenL aL Lhe Cash ulvlslon Commlsslon on LlecLlons
ln cash or cashler's check payable Lo Lhe Commlsslon on LlecLlons of a non
100

refundable amounL of lll1LLn 1PCuSAnu LSCS (hp1300000) for each
phase lor Lhls purpose lnLeresLed offerors vendors suppllers or lessors have Lhe
opLlon Lo parLlclpaLe ln any or all of Lhe Lhree (3) phases of Lhe comprehenslve
AuLomaLed LlecLlon SysLem
A re8ld Conference ls scheduled on 13 lebruary 2003 aL 900 am aL Lhe Sesslon
Pall Commlsslon on LlecLlons osLlgo SLreeL lnLramuros Manlla Should Lhere be
quesLlons on Lhe bld documenLs bldders are requlred Lo submlL Lhelr querles ln
wrlLlng Lo Lhe 8AC SecreLarlaL prlor Lo Lhe scheduled re8ld Conference
ueadllne for submlsslon Lo Lhe 8AC of appllcaLlons for ellglblllLy and bld envelopes
for Lhe supply of Lhe comprehenslve AuLomaLed LlecLlon SysLem shall be aL Lhe
Sesslon Pall Commlsslon on LlecLlons osLlgo SLreeL lnLramuros Manlla on 28
lebruary 2003 aL 900 am
1he CCMLLLC reserves Lhe rlghL Lo revlew Lhe quallflcaLlons of Lhe bldders afLer Lhe
blddlng and before Lhe conLracL ls execuLed Should such revlew uncover any
mlsrepresenLaLlon made ln Lhe ellglblllLy sLaLemenLs or any changes ln Lhe
slLuaLlon of Lhe bldder Lo maLerlally downgrade Lhe subsLance of such sLaLemenLs
Lhe CCMLLLC shall dlsquallfy Lhe bldder upon due noLlce wlLhouL any obllgaLlon
whaLsoever for any expenses or losses LhaL may be lncurred by lL ln Lhe preparaLlon
of lLs bld"
9

Cn lebruary 11 2003 Comelec lssued 8esoluLlon no 3929 clarlfylng cerLaln
ellglblllLy crlLerla for bldders and Lhe schedule of acLlvlLles for Lhe pro[ecL blddlng
as follows
1) Cpen Lo llllplno and forelgn corporaLlon duly reglsLered and llcensed Lo do
buslness and ls acLually dolng buslness ln Lhe hlllpplnes sub[ecL Lo Sec 43 of 8A
9184 (An AcL provldlng ln Lhe ModernlzaLlon SLandardlzaLlon and 8egulaLlon of Lhe
rocuremenL AcLlvlLles of Lhe CovernmenL and for oLher purposes eLc)
2) 1rack 8ecord
a) lor counLlng machlnes should have been used ln aL leasL one (1) pollLlcal
exerclse wlLh no less Lhan 1wenLy Mllllon voLers
b) lor verlflcaLlon of voLers Lhe reference slLe of an exlsLlng daLa base
lnsLallaLlon uslng AuLomaLed llngerprlnL ldenLlflcaLlon SysLem (AllS) wlLh aL leasL
1wenLy Mllllon
3) 1en percenL (10) equlLy requlremenL shall be based on Lhe LoLal pro[ecL
cosL and
4) erformance bond shall be LwenLy percenL (20) of Lhe bld offer
8LSCLvLu moreover LhaL
1) A uue Lo Lhe declslon LhaL Lhe ellglblllLy requlremenLs and Lhe resL of Lhe 8ld
documenLs shall be released aL Lhe same Llme and Lhe memorandum of Comm
8esurrecclon Z 8orra daLed lebruary 7 2003 Lhe documenLs Lo be released on
lrlday lebruary 14 2003 aL 200 o'clock pm shall be Lhe ellglblllLy crlLerla 1erms
of 8eference (1C8) and oLher perLlnenL documenLs
8 re8ld conference shall be on lebruary 18 2003 and
C ueadllne for Lhe submlsslon and recelpL of Lhe 8lds shall be on March 3 2003
2) 1he aforemenLloned documenLs wlll be avallable aL Lhe followlng offlces
a) voLers valldaLlon Cfflce of Comm !avler
b) AuLomaLed CounLlng Machlnes Cfflce of Comm 8orra
c) LlecLronlc 1ransmlsslon Cfflce of Comm 1ancangco"
10

Cn lebruary 17 2003 Lhe poll body released Lhe 8equesL for roposal (8l) Lo
procure Lhe elecLlon auLomaLlon machlnes 1he 8lds and Awards CommlLLee (8AC)
of Comelec convened a prebld conference on lebruary 18 2003 and gave
prospecLlve bldders unLll March 10 2003 Lo submlL Lhelr respecLlve blds
Among oLhers Lhe 8l provlded LhaL blds from manufacLurers suppllers and/or
dlsLrlbuLors formlng Lhemselves lnLo a [olnL venLure may be enLerLalned provlded
LhaL Lhe hlllpplne ownershlp Lhereof shall be aL leasL 60 percenL Iolot veotote ls
deflned ln Lhe 8l as a group of Lwo or more manufacLurers suppllers and/or
dlsLrlbuLors LhaL lnLend Lo be [olnLly and severally responslble or llable for a
parLlcular conLracL"
11

8aslcally Lhe publlc blddlng was Lo be conducLed under a twoeovelope/two stoqe
system 1he bldder's flrsL envelope or Lhe LllglblllLy Lnvelope should esLabllsh Lhe
bldder's ellglblllLy Lo bld and lLs quallflcaLlons Lo perform Lhe acLs lf accepLed Cn
Lhe oLher hand Lhe second envelope would be Lhe 8ld Lnvelope lLself 1he 8l
ouLllnes Lhe blddlng procedures as follows
23 ueLermlnaLlon of LllglblllLy of rospecLlve 8ldders
231 1he ellglblllLy envelopes of prospecLlve 8ldders shall be opened flrsL Lo
deLermlne Lhelr ellglblllLy ln case any of Lhe requlremenLs speclfled ln Clause 20 ls
mlsslng from Lhe flrsL bld envelope Lhe 8AC shall declare sald prospecLlve 8ldder as
lnellglble Lo bld 8ld envelopes of lnellglble 8ldders shall be lmmedlaLely reLurned
unopened
232 1he ellglblllLy of prospecLlve 8ldders shall be deLermlned uslng slmple
'pass/fall' crlLerla and shall be deLermlned as elLher ellglble or lnellglble lf Lhe
prospecLlve 8ldder ls raLed 'passed' for all Lhe legal Lechnlcal and flnanclal
requlremenLs he shall be consldered ellglble lf Lhe prospecLlve 8ldder ls raLed
'falled' ln any of Lhe requlremenLs he shall be consldered lnellglble
#26 8lJ xomlootloo/volootloo
261 1he 8AC wlll examlne Lhe 8lds Lo deLermlne wheLher Lhey are compleLe
wheLher any compuLaLlonal errors have been made wheLher requlred securlLles
have been furnlshed wheLher Lhe documenLs have been properly slgned and
wheLher Lhe 8lds are generally ln order
262 1he 8AC shall check Lhe submlLLed documenLs of each 8ldder agalnsL Lhe
requlred documenLs enumeraLed under Clause 20 Lo ascerLaln lf Lhey are all
presenL ln Lhe Second bld envelope (1echnlcal Lnvelope) ln case one (1) or more of
Lhe requlred documenLs ls mlsslng Lhe 8AC shall raLe Lhe 8ld concerned as 'falled'
and lmmedlaLely reLurn Lo Lhe 8ldder lLs 1hlrd bld envelope (llnanclal Lnvelope)
unopened CLherwlse Lhe 8AC shall raLe Lhe flrsL bld envelope as 'passed'
101

263 1he 8AC shall lmmedlaLely open Lhe llnanclal Lnvelopes of Lhe 8ldders
whose 1echnlcal Lnvelopes were passed or raLed on or above Lhe passlng
score Cnly 8lds LhaL are deLermlned Lo conLaln all Lhe bld requlremenLs for boLh
componenLs shall be raLed 'passed' and shall lmmedlaLely be consldered for
evaluaLlon and comparlson
264 ln Lhe openlng and examlnaLlon of Lhe llnanclal Lnvelope Lhe 8AC shall
announce and LabulaLe Lhe 1oLal 8ld rlce as calculaLed ArlLhmeLlcal errors wlll be
recLlfled on Lhe followlng basls lf Lhere ls a dlscrepancy beLween words and flgures
Lhe amounL ln words wlll prevall lf Lhere ls a dlscrepancy beLween Lhe unlL prlce
and Lhe LoLal prlce LhaL ls obLalned by mulLlplylng Lhe unlL prlce and Lhe quanLlLy
Lhe unlL prlce shall prevall and Lhe LoLal prlce shall be correcLed accordlngly lf
Lhere ls a dlscrepancy beLween Lhe 1oLal 8ld rlce and Lhe sum of Lhe LoLal prlces
Lhe sum of Lhe LoLal prlces prevall and Lhe 1oLal 8ld rlce shall be correcLed
accordlngly
263 llnanclal roposals whlch do noL clearly sLaLe Lhe 1oLal 8ld rlce shall be
re[ecLed Also 1oLal 8ld rlce as calculaLed LhaL exceeds Lhe approved budgeL for
Lhe conLracL shall also be re[ecLed
27 compotlsoo of 8lJs
271 1he bld prlce shall be deemed Lo embrace all cosLs charges and fees
assoclaLed wlLh carrylng ouL all Lhe elemenLs of Lhe proposed ConLracL lncludlng
buL noL llmlLed Lo llcense fees frelghL charges and Laxes
272 1he 8AC shall esLabllsh Lhe calculaLed prlces of all 8lds raLed 'passed' and
rank Lhe same ln ascendlng order
x x x x x x x x x
29 lostpoollflcotloo
291 1he 8AC wlll deLermlne Lo lLs saLlsfacLlon wheLher Lhe 8ldder selecLed as
havlng submlLLed Lhe lowesL calculaLed bld ls quallfled Lo saLlsfacLorlly perform Lhe
ConLracL
292 1he deLermlnaLlon wlll Lake lnLo accounL Lhe 8ldder's flnanclal Lechnlcal and
producLlon capablllLles/resources lL wlll be based upon an examlnaLlon of Lhe
documenLary evldence of Lhe 8ldder's quallflcaLlon submlLLed by Lhe 8ldder as well
as such oLher lnformaLlon as Lhe 8AC deems necessary and approprlaLe
293 A bld deLermlned as noL subsLanLlally responslve wlll be re[ecLed by Lhe 8AC
and may noL subsequenLly be made responslve by Lhe 8ldder by correcLlon of Lhe
nonconformlLy
294 1he 8AC may walve any lnformallLy or nonconformlLy or lrregularlLy ln a bld
whlch does noL consLlLuLe a maLerlal devlaLlon provlded such walver does noL
pre[udlce or affecL Lhe relaLlve ranklng of any 8ldder
293 Should Lhe 8AC flnd LhaL Lhe 8ldder complles wlLh Lhe legal flnanclal and
Lechnlcal requlremenLs lL shall make an afflrmaLlve deLermlnaLlon whlch shall be a
prerequlslLe for award of Lhe ConLracL Lo Lhe 8ldder CLherwlse lL wlll make a
negaLlve deLermlnaLlon whlch wlll resulL ln re[ecLlon of Lhe 8ldder's bld ln whlch
evenL Lhe 8AC wlll proceed Lo Lhe nexL lowesL calculaLed bld Lo make a slmllar
deLermlnaLlon of LhaL 8ldder's capablllLles Lo perform saLlsfacLorlly"
12

CuL of Lhe 37 bldders
13
Lhe 8AC found MC and Lhe 1oLal lnformaLlon
ManagemenL CorporaLlon (1lMC) ellglble lor Lechnlcal evaluaLlon Lhey were
referred Lo Lhe 8AC's 1echnlcal Worklng Croup (1WC) and Lhe ueparLmenL of
Sclence and 1echnology (uCS1)
ln lLs 8eporL on Lhe LvaluaLlon of Lhe 1echnlcal roposals on hase ll uCS1 sald
LhaL boLh MC and 1lMC had obLalned a number of falled marks ln Lhe Lechnlcal
evaluaLlon noLwlLhsLandlng Lhese fallures Comelec en banc on Aprll 13 2003
promulgaLed 8esoluLlon no 6074 awardlng Lhe pro[ecL Lo MC 1he Commlsslon
publlclzed Lhls 8esoluLlon and Lhe award of Lhe pro[ecL Lo MC on May 16 2003
Cn May 29 2003 flve lndlvlduals and enLlLles (lncludlng Lhe hereln eLlLloners
lnformaLlon 1echnology loundaLlon of Lhe hlllpplnes represenLed by lLs presldenL
Alfredo M 1orres and Ma Corazon Akol) wroLe a leLLer
14
Lo Comelec Chalrman
8en[amln Abalos Sr 1hey proLesLed Lhe award of Lhe ConLracL Lo 8espondenL MC
due Lo glarlng lrregularlLles ln Lhe manner ln whlch Lhe blddlng process had been
conducLed" ClLlng Lhereln Lhe noncompllance wlLh ellglblllLy as well as Lechnlcal
and procedural requlremenLs (many of whlch have been dlscussed aL lengLh ln Lhe
eLlLlon) Lhey soughL a reblddlng
ln a leLLerreply daLed !une 6 2003
13
Lhe Comelec chalrman speaklng Lhrough
ALLy !alme az hls head execuLlve asslsLanL re[ecLed Lhe proLesL and declared
LhaL Lhe award would sLand up Lo Lhe sLrlcLesL scruLlny"
Pence Lhe presenL eLlLlon
16

1he Issues
ln Lhelr Memorandum peLlLloners ralse Lhe followlng lssues for our conslderaLlon
1 1he CCMLLLC awarded and conLracLed wlLh a nonellglble enLlLy x x x
2 rlvaLe respondenLs falled Lo pass Lhe 1echnlcal 1esL as requlred ln Lhe 8l
noLwlLhsLandlng such fallure was lgnored ln effecL Lhe CCMLLLC changed Lhe
rules afLer Lhe blddlng ln effecL changlng Lhe naLure of Lhe conLracL bldded upon
3 eLlLloners have locos stooJl
4 lnsLanL eLlLlon ls noL premaLure ulrecL resorL Lo Lhe Supreme CourL ls
[usLlfled"
17

ln Lhe maln Lhe sobstootlve lssue ls wheLher Lhe Commlsslon on LlecLlons Lhe
agency vesLed wlLh Lhe excluslve consLlLuLlonal mandaLe Lo oversee elecLlons
gravely abused lLs dlscreLlon when ln Lhe exerclse of lLs admlnlsLraLlve funcLlons lL
awarded Lo MC Lhe conLracL for Lhe second phase of Lhe comprehenslve
AuLomaLed LlecLlon SysLem
8efore dlscusslng Lhe valldlLy of Lhe award Lo MC however we deem lL proper Lo
flrsL pass upon Lhe ptoceJotol lssues Lhe legal sLandlng of peLlLloners and Lhe
alleged premaLurlLy of Lhe eLlLlon
1h|s Court's ku||ng
1he eLlLlon ls merlLorlous
102

I|rst 9rocedura| Issue
Locus Stand| of Petitioners
8espondenLs chorus LhaL peLlLloners do noL possess locos stooJl lnasmuch as Lhey
are noL challenglng Lhe valldlLy or consLlLuLlonallLy of 8A 8436 Moreover
peLlLloners supposedly admlLLed durlng Lhe Cral ArgumenL LhaL no law had been
vlolaLed by Lhe award of Lhe ConLracL lurLhermore Lhey allegedly have no acLual
and maLerlal lnLeresL ln Lhe ConLracL and hence do noL sLand Lo be ln[ured or
pre[udlced on accounL of Lhe award
Cn Lhe oLher hand peLlLloners sulng ln Lhelr capaclLles as Laxpayers reglsLered
voLers and concerned clLlzens respond LhaL Lhe lssues cenLral Lo Lhls case are of
LranscendenLal lmporLance and of naLlonal lnLeresL" Allegedly Comelec's flawed
blddlng and quesLlonable award of Lhe ConLracL Lo an unquallfled enLlLy would
lmpacL dlrecLly on Lhe success or Lhe fallure of Lhe elecLoral process 1hus any LalnL
on Lhe sancLlLy of Lhe balloL as Lhe expresslon of Lhe wlll of Lhe people would
lnevlLably affecL Lhelr falLh ln Lhe democraLlc sysLem of governmenL eLlLloners
furLher argue LhaL Lhe award of any conLracL for auLomaLlon lnvolves dlsbursemenL
of publlc funds ln garganLuan amounLs Lherefore publlc lnLeresL requlres LhaL Lhe
laws governlng Lhe LransacLlon musL be followed sLrlcLly
We agree wlLh peLlLloners Cur naLlon's pollLlcal and economlc fuLure vlrLually
hangs ln Lhe balance pendlng Lhe ouLcome of Lhe 2004 elecLlons Pence Lhere can
be no serlous doubL LhaL Lhe sub[ecL maLLer of Lhls case ls a maLLer of publlc
concern and lmbued wlLh publlc lnLeresL"
18
ln oLher words lL ls of paramounL
publlc lnLeresL"
19
and LranscendenLal lmporLance"
20
1hls facL alone would
[usLlfy relaxlng Lhe rule on legal sLandlng followlng Lhe llberal pollcy of Lhls CourL
whenever a case lnvolves an lssue of overarchlng slgnlflcance Lo our
socleLy"
21
eLlLloners' legal sLandlng should Lherefore be recognlzed and upheld
Moreover Lhls CourL has held LhaL Laxpayers are allowed Lo sue when Lhere ls a
clalm of lllegal dlsbursemenL of publlc funds"
22
or lf publlc money ls belng
deflecLed Lo any lmproper purpose"
23
or when peLlLloners seek Lo resLraln
respondenL from wasLlng publlc funds Lhrough Lhe enforcemenL of an lnvalld or
unconsLlLuLlonal law"
24
ln Lhe lnsLanL case lndlvldual peLlLloners sulng as
Laxpayers asserL a maLerlal lnLeresL ln seelng Lo lL LhaL publlc funds are properly
and lawfully used ln Lhe eLlLlon Lhey clalm LhaL Lhe blddlng was defecLlve Lhe
wlnnlng bldder noL a quallfled enLlLy and Lhe award of Lhe ConLracL conLrary Lo law
and regulaLlon Accordlngly Lhey seek Lo resLraln respondenLs from lmplemenLlng
Lhe ConLracL and oecessotlly ftom mokloq ooy oowottooteJ expeoJltote of pobllc
fooJs potsooot tbeteto 1hus we hold LhaL peLlLloners possess locos stooJl
Second 9rocedura| Issue
4//eqed Premoturity uue to Nonxhoustion
of 4dministrotive kemedies
8espondenLs clalm LhaL peLlLloners acLed premaLurely slnce Lhey had noL flrsL
uLlllzed Lhe proLesL mechanlsm avallable Lo Lhem under 8A 9184 Lhe CovernmenL
rocuremenL 8eform AcL for Lhe seLLlemenL of dlspuLes perLalnlng Lo procuremenL
conLracLs
SecLlon 33 of 8A 9184 sLaLes LhaL proLesLs agalnsL declslons of Lhe 8lddlng and
Awards CommlLLee ln all sLages of procuremenL may be lodged wlLh Lhe head of Lhe
procurlng enLlLy by flllng a verlfled poslLlon paper and paylng a proLesL fee SecLlon
37 of Lhe same law mandaLes LhaL ln no case shall any such proLesL sLay or delay Lhe
blddlng process buL lL musL flrsL be resolved before any award ls made
Cn Lhe oLher hand SecLlon 38 provldes LhaL courL acLlon may be resorLed Lo only
afLer Lhe proLesLs conLemplaLed by Lhe sLaLuLe shall have been compleLed Cases
flled ln vlolaLlon of Lhls process are Lo be dlsmlssed for lack of [urlsdlcLlon 8eglonal
Lrlal courLs shall have [urlsdlcLlon over flnal declslons of Lhe head of Lhe procurlng
enLlLy and courL acLlons shall be lnsLlLuLed pursuanL Lo 8ule 63 of Lhe 1997 8ules of
Clvll rocedure
8espondenLs asserL LhaL LhroughouL Lhe blddlng process peLlLloners never
quesLloned Lhe 8AC 8eporL flndlng MC ellglble Lo bld and recommendlng Lhe
award of Lhe ConLracL Lo lL (MC) Accordlng Lo respondenLs Lhe 8eporL should
have been appealed Lo Lhe Comelec en banc pursuanL Lo Lhe aforemenLloned
secLlons of 8A 9184 ln Lhe absence of such appeal Lhe deLermlnaLlon and
recommendaLlon of Lhe 8AC had become flnal
1he CourL ls noL persuaded
8espondenL Comelec came ouL wlLh lLs en banc 8esoluLlon no 6074 daLed Aprll 13
2003 awardlng Lhe pro[ecL Lo 8espondenL MC even before Lhe 8AC managed Lo
lssue lLs wrlLLen reporL and recommendaLlon on Aprll 21 2003 1hus how could
peLlLloners have appealed Lhe 8AC's recommendaLlon or reporL Lo Lhe head of Lhe
procurlng enLlLy (Lhe chalrman of Comelec) when Lhe Comelec en banc had already
approved Lhe award of Lhe conLracL Lo MC even before peLlLloners learned of Lhe
8AC recommendaLlon?
lL ls clalmed
23
by Comelec LhaL durlng lLs Aprll 13 2003 sesslon lL recelved and
approved Lhe vetbol reporL and recommendaLlon of Lhe 8AC for Lhe award of Lhe
ConLracL Lo MC and LhaL Lhe 8AC subsequenLly reafflrmed lLs verbal reporL and
recommendaLlon by submlLLlng lL ln wrlLlng on Aprll 21 2003 8espondenLs lnslsL
LhaL Lhe law does noL requlre LhaL Lhe 8AC 8eporL be ln wrlLlng before Comelec can
acL Lhereon Lherefore Lhere ls allegedly noLhlng lrregular abouL Lhe 8eporL as well
as Lhe en banc 8esoluLlon
Powever lL ls obvlous LhaL peLlLloners could have appealed Lhe 8AC's reporL and
recommendaLlon Lo Lhe head of Lhe procurlng enLlLy (Lhe Comelec chalr) ooly upon
LhelrJlscovety Lhereof whlch aL Lhe very earllesL would have been on Aprll 21
2003 when Lhe 8AC acLually puL lLs reporL ln wrlLlng and flnally released lL Lven
Lhen whaL would have been Lhe use of proLesLlng/appeallng Lhe reporL Lo Lhe
Comelec chalr when by LhaL Llme Lhe Commlsslon en banc (locloJloq tbe cboltmoo
blmself) had already approved Lhe 8AC 8eporL and awarded Lhe ConLracL Lo MC?
103

And even assumlng otqoeoJo LhaL peLlLloners had somehow goLLen wlnd of Lhe
verbal 8AC reporL on Aprll 13 2003 (lmmedlaLely afLer Lhe en banc sesslon) aL LhaL
polnL Lhe Commlsslon en banc had already glven lLs approval Lo Lhe 8AC 8eporL
along wlLh Lhe award Lo MC 1o pot lt blootly tbe comelec eo booc ltself moJe lt
leqolly lmposslble fot petltlooets to ovoll tbemselves of tbe oJmlolsttotlve temeJy
tbot tbe commlssloo ls so lmploosly botploq oo 1here ls no doubL LhaL Lhey had noL
been accorded Lhe opporLunlLy Lo avall Lhemselves of Lhe process provlded under
SecLlon 33 of 8A 9184 accordlng Lo whlch a proLesL agalnsL a declslon of Lhe 8AC
may be flled wltb tbe beoJ of tbe ptocotloq eotlty Nemo teoetot oJ
lmposslble
26
Lo borrow prlvaLe respondenLs' favorlLe LaLln excuse
27

5ome bservotions on the
84 keport to the ome/ec
We shall reLurn Lo Lhls lssue of alleged premaLurlLy shorLly buL aL Lhls lnLersLlce we
would [usL wanL Lo puL forward a few observaLlons regardlng Lhe 8AC 8eporL and
Lhe Comelec en banc's approval Lhereof
lltst Comelec conLends LhaL Lhere was noLhlng unusual abouL Lhe facL LhaL Lhe
8eporL submlLLed by Lhe 8AC came only afLer Lhe former had already awarded Lhe
ConLracL because Lhe laLLer had been asked Lo render lLs reporL and
recommendaLlon orally durlng Lhe Commlsslon's en banc sesslon on Aprll 13 2003
Accordlngly Comelec supposedly acLed upon such oral recommendaLlon and
approved Lhe award Lo MC on Lhe same day followlng whlch Lhe recommendaLlon
was subsequenLly reduced lnLo wrlLlng on Aprll 21 2003 Whlle noL enLlrely ouLslde
Lhe realm of Lhe posslble Lhls lnLeresLlng and unlque splel does noL speak well of
Lhe process LhaL Comelec supposedly wenL Lhrough ln maklng a crlLlcal declslon
wlLh respecL Lo a mulLlbllllonpeso conLracL
We can lmaglne LhaL anyone else sLandlng ln Lhe shoes of Lhe Ponorable
Commlssloners would have been exLremely consclous of Lhe overarchlng need for
uLLer Lransparency 1hey would have scrupulously avolded Lhe sllghLesL hlnL of
lmproprleLy preferrlng Lo malnLaln an exacLlng regularlLy ln Lhe performance of
Lhelr duLles lnsLead of Lrylng Lo break a speed record ln Lhe award of mulLlbllllon
peso conLracLs AfLer all beLween Aprll 13 and Aprll 21 were a mere slx (6)
days Could Comelec noL have walLed ouL slx more days for Lhe wrlLLen reporL of
Lhe 8AC lnsLead of rushlng pellmell lnLo Lhe arms of MC? CerLalnly respondenLs
never cared Lo explaln Lhe naLure of Lhe Commlsslon's dlre need Lo acL lmmedlaLely
wlLhouL awalLlng Lhe formal wrlLLen 8AC 8eporL
ln shorL Lhe CourL flnds lL dlfflculL Lo reconclle Lhe uncommon dlspaLch wlLh whlch
Comelec acLed Lo approve Lhe mulLlbllllonpeso deal wlLh lLs clalm of havlng been
lmpelled by only Lhe puresL and mosL noble of moLlves
AL any raLe as wlll be dlscussed laLer on several oLher facLors comblne Lo
lend oeqotlve credence Lo Comelec's Lale
5ecooJ wlLhouL necessarlly ascrlblng any premaLure mallce or premedlLaLlon on
Lhe parL of Lhe Comelec offlclals lnvolved lL should neverLheless be conceded LhaL
Lhls carLbeforeLhehorse maneuver (awardlng of Lhe ConLracL ahead of Lhe 8AC's
wrlLLen reporL) would deflnlLely serve as a clever and effecLlve way of averLlng and
frusLraLlng any lmpendlng proLesL under SecLlon 33
Pavlng made Lhe foregolng observaLlons we now go back Lo Lhe quesLlon of
exhausLlng admlnlsLraLlve remedles 8espondenLs may noL have reallzed lL buL Lhe
leLLer addressed Lo Chalrman 8en[amln Abalos Sr daLed May 29 2003
28
serves Lo
ellmlnaLe Lhe premaLurlLy lssue as lL was an acLual wrlLLen proLesL agalnsL Lhe
declslon of Lhe poll body Lo award Lhe ConLracL 1he leLLer was slgned by/for lotet
ollo Lwo of hereln peLlLloners Lhe lnformaLlon 1echnology loundaLlon of Lhe
hlllpplnes represenLed by lLs presldenL Alfredo M 1orres and Ma Corazon Akol
Such leLLerproLesL ls sofflcleot compllooce wlLh Lhe requlremenL Lo exhausL
admlnlsLraLlve remedles parLlcularly because lL hews closely Lo Lhe procedure
ouLllned ln SecLlon 33 of 8A 9184
And even wlLhouL LhaL May 29 2003 leLLerproLesL Lhe CourL sLlll holds LhaL
peLlLloners need noL exhausL admlnlsLraLlve remedles ln Lhe llghL of loot v coott of
Appeols
29
lootenumeraLes Lhe lnsLances when Lhe rule on exhausLlon of
admlnlsLraLlve remedles may be dlsregarded as follows
(1) when Lhere ls a vlolaLlon of due process
(2) when Lhe lssue lnvolved ls purely a legal quesLlon
(3) when Lhe admlnlsLraLlve acLlon ls paLenLly lllegal amounLlng Lo lack or excess
of [urlsdlcLlon
(4) when Lhere ls esLoppel on Lhe parL of Lhe admlnlsLraLlve agency concerned
(3) when Lhere ls lrreparable ln[ury
(6) when Lhe respondenL ls a deparLmenL secreLary whose acLs as an oltet eqo of
Lhe resldenL bears Lhe lmplled and assumed approval of Lhe laLLer
(7) when Lo requlre exhausLlon of admlnlsLraLlve remedles would be
unreasonable
(8) when lL would amounL Lo a nulllflcaLlon of a clalm
(9) when Lhe sub[ecL maLLer ls a prlvaLe land ln land case proceedlngs
(10) when Lhe rule does noL provlde a plaln speedy and adequaLe remedy and
(11) when Lhere are clrcumsLances lndlcaLlng Lhe urgency of [udlclal
lnLervenLlon"
30

1he presenL conLroversy pteclsely falls wlLhln Lhe excepLlons llsLed as nos 7 10 and
11 (7) wbeo to tepolte exboostloo of oJmlolsttotlve temeJles woolJ be
ooteosoooble (10) wbeo tbe tole Joes oot ptovlJe o plolo speeJy ooJ oJepoote
temeJy ooJ (11) wbeo tbete ote cltcomstooces loJlcotloq tbe otqeocy of joJlclol
lotetveotloo" As already sLaLed Comelec lLself made Lhe exhausLlon of
admlnlsLraLlve remedles legally lmposslble or aL Lhe very leasL unreasonable"
ln any evenL Lhe pecullar clrcumsLances surroundlng Lhe unconvenLlonal rendlLlon
of Lhe 8AC 8eporL and Lhe preclplLaLe awardlng of Lhe ConLracL by Lhe Comelec en
banc plus Lhe facL LhaL lL was raclng Lo have lLs ConLracL wlLh MC lmplemenLed
ln Llme for Lhe elecLlons ln May 2004 (barely four monLhs away) have comblned
104

Lo brlng abouL Lhe urgenL need for [udlclal lnLervenLlon Lhus prompLlng Lhls CourL
Lo dlspense wlLh Lhe procedural exhausLlon of admlnlsLraLlve remedles ln Lhls case
Ma|n Substant|ve Issue
Io/idity of the 4word to MP
We come now Lo Lhe meaL of Lhe conLroversy eLlLloners conLend LhaL Lhe award
ls lovollJ slnce Comelec gravely abused lLs dlscreLlon when lL dld Lhe followlng
1 Awarded Lhe ConLracL Lo MC Lhough lL dld noL even parLlclpaLe ln Lhe blddlng
2 Allowed MLl Lo parLlclpaLe ln Lhe blddlng desplLe lLs fallure Lo meeL Lhe
mandaLory ellglblllLy requlremenLs
3 lssued lLs 8esoluLlon of Aprll 13 2003 awardlng Lhe ConLracL Lo MC desplLe Lhe
lssuance by Lhe 8AC of lLs 8eporL whlch formed Lhe basls of Lhe assalled
8esoluLlon only on Aprll 21 2003
31

4 Awarded Lhe ConLracL noLwlLhsLandlng Lhe facL LhaL durlng Lhe blddlng process
Lhere were vlolaLlons of Lhe mandaLory requlremenLs of 8A 8436 as well as Lhose
seL forLh ln Comelec's own 8equesL for roposal on Lhe auLomaLed elecLlon sysLem
3 8efused Lo declare a falled blddlng and Lo conducL a reblddlng desplLe Lhe
fallure of Lhe bldders Lo pass Lhe Lechnlcal LesLs conducLed by Lhe ueparLmenL of
Sclence and 1echnology
6 lalled Lo follow sLrlcLly Lhe provlslons of 8A 8436 ln Lhe conducL of Lhe blddlng
for Lhe auLomaLed counLlng machlnes
AfLer revlewlng Lhe slew of pleadlngs as well as Lhe maLLers ralsed durlng Lhe Cral
ArgumenL Lhe CourL deems lL sufflclenL Lo focus dlscusslon on Lhe followlng mojot
oteos of cooceto LhaL lmplnge on Lhe lssue of grave abuse of dlscreLlon
A MaLLers perLalnlng Lo Lhe ldenLlLy exlsLence and ellglblllLy of MC as a bldder
8 lallure of Lhe auLomaLed counLlng machlnes (ACMs) Lo pass Lhe uCS1
Lechnlcal LesLs
C 8emedlal measures and reLesLlngs underLaken by Comelec and uCS1 afLer
Lhe award and Lhelr effecL on Lhe presenL conLroversy
A
loi/ure to stob/ish the ldentity
xistence ond /iqibi/ity of the
4//eqed onsortium os o 8idder
Cn Lhe quesLlon of Lhe ldenLlLy and Lhe exlsLence of Lhe real bldder respondenLs
lnslsL LhaL conLrary Lo peLlLloners' allegaLlons Lhe bldder was noL Mega aclflc
eSoluLlons lnc (MLl) whlch was lncorporaLed only on lebruary 27 2003 or 11
days prlor Lo Lhe blddlng lLself 8aLher Lhe bldder was Mega aclflc ConsorLlum
(MC) of whlch MLl was buL a parL As proof Lhereof Lhey polnL Lo Lhe March 7
2003 leLLer of lnLenL Lo bld slgned by Lhe presldenL of MLl allegedly for and on
behalf of MC 1hey also call aLLenLlon Lo Lhe offlclal recelpL lssued Lo MC
acknowledglng paymenL for Lhe blddlng documenLs as proof LhaL lL was Lhe
consorLlum" LhaL parLlclpaLed ln Lhe blddlng process
We do noL agree 1he March 7 2003 leLLer slgned by only one slgnaLory Wllly
u ?u resldenL Mega aclflc eSoluLlons lnc (Lead Company/ roponenL) lor
Mega aclflc ConsorLlum" and wlLhouL any furLher proof does noL by lLself prove
Lhe exlsLence of Lhe consorLlum lL does noL show LhaL MLl or lLs presldenL have
been duly preauLhorlzed by Lhe oLher members of Lhe puLaLlve consorLlum Lo
represenL Lhem Lo bld on Lhelr collecLlve behalf and more lmporLanL Lo commlL
Lhem [olnLly and severally Lo Lhe bld underLaklngs 1he leLLer ls purely selfservlng
and uncorroboraLed
nelLher does an offlclal recelpL lssued Lo MC acknowledglng paymenL for Lhe
blddlng documenLs consLlLuLe proof LhaL lL was Lhe purporLed consorLlum LhaL
parLlclpaLed ln Lhe blddlng Such recelpLs are lssued by cashlers wlLhouL any legally
sufflclenL lnqulry as Lo Lhe real ldenLlLy or exlsLence of Lhe supposed payor
1o assure lLself properly of Lhe due exlsLence (as well as ellglblllLy and quallflcaLlon)
of Lhe puLaLlve consorLlum Comelec's 8AC should have examlned Lhe blddlng
documenLs submlLLed on behalf of MC 1hey would have easlly dlscovered Lhe
followlng faLal flaws
@wonve/ope
@wo5toqe 5ystem
As sLaLed earller ln our facLual presenLaLlon Lhe publlc blddlng sysLem deslgned by
Comelec under lLs 8l (8equesL for roposal for Lhe AuLomaLlon of Lhe 2004
LlecLlon) mandaLed Lhe use of a Lwoenvelope LwosLage sysLem A bldder's fltst
eovelope (LllglblllLy Lnvelope) was meanL Lo esLabllsh lLs ellglblllLy Lo bld and lLs
quallflcaLlons and capaclLy Lo perform Lhe conLracL lf lLs bld was accepLed whlle
Lhe secooJ eovelope would be Lhe 8ld Lnvelope lLself
1he LllglblllLy Lnvelope was Lo conLaln leqol Jocomeots such as arLlcles of
lncorporaLlon buslness reglsLraLlons llcenses and permlLs mayor's permlL vA1
cerLlflcaLlon and so forLh tecbolcol Jocomeots conLalnlng documenLary evldence
Lo esLabllsh Lhe Lrack record of Lhe bldder and lLs Lechnlcal and producLlon
capablllLles Lo perform Lhe conLracL andfloooclol Jocomeots lncludlng audlLed
flnanclal sLaLemenLs for Lhe lasL Lhree years Lo esLabllsh Lhe bldder's flnanclal
capaclLy
ln Lhe case of a consorLlum or [olnL venLure deslrous of parLlclpaLlng ln Lhe blddlng
lL goes wlLhouL saylng LhaL Lhe LllglblllLy Lnvelope would necessarlly have Lo lnclude
a copy of Lhe [olnL venLure agreemenL Lhe consorLlum agreemenL or memorandum
of agreemenL or a buslness plan or some oLher lnsLrumenL of slmllar lmporL
esLabllshlng Lhe due exlsLence composlLlon and scope of such
aggrupaLlon Otbetwlse bow woolJ comelec koow wbo lt wos Jeolloq wltb ooJ
wbetbet tbese pottles ote poollfleJ ooJ copoble of Jellvetloq tbe ptoJocts ooJ
setvlces beloq offeteJ fot blJJloq?
32

ln Lhe lnsLanL case no such lnsLrumenL was submlLLed Lo Comelec durlng Lhe
blddlng process 1hls facL can be concluslvely ascerLalned by scruLlnlzlng Lhe Lwo
lnch Lhlck LllglblllLy 8equlremenLs" flle submlLLed by Comelec lasL CcLober 9 2003
103

ln parLlal compllance wlLh Lhls CourL's lnsLrucLlons glven durlng Lhe Cral
ArgumenL 1hls flle purporLs Lo repllcaLe Lhe ellglblllLy documenLs orlglnally
submlLLed Lo Comelec by MLl allegedly on behalf of MC ln connecLlon wlLh Lhe
blddlng conducLed ln March 2003 lncluded ln Lhe flle are Lhe lncorporaLlon papers
and flnanclal sLaLemenLs of Lhe members of Lhe supposed consorLlum and cerLaln
cerLlflcaLes llcenses and permlLs lssued Lo Lhem
Powever Lhere ls no slgn whaLsoever of any [olnL venLure agreemenL consorLlum
agreemenL memorandum of agreemenL or buslness plan execuLed among Lhe
members of Lhe purporLed consorLlum
1he only loglcal concluslon ls LhaL no such agreemenL was ever submlLLed Lo Lhe
Comelec for lLs conslderaLlon os pott of tbe blJJloq ptocess
lL Lhus follows LhaL prlor Lhe award of Lhe ConLracL Lhere was no documenLary or
oLher basls for Comelec Lo conclude LhaL a consorLlum had acLually been formed
amongsL MLl Sk CC and WeSolv along wlLh LlecLloncom and eLu1
33
nelLher
was Lhere anyLhlng Lo lndlcaLe Lhe exacL relaLlonshlps beLween and among Lhese
flrms Lhelr dlverse roles underLaklngs and presLaLlons lf any relaLlve Lo Lhe
prosecuLlon of Lhe pro[ecL Lhe exLenL of Lhelr respecLlve lnvesLmenLs (lf any) ln Lhe
supposed consorLlum or ln Lhe pro[ecL and Lhe preclse naLure and exLenL of Lhelr
respecLlve llablllLles wlLh respecL Lo Lhe conLracL belng offered for blddlng And
aparL from Lhe selfservlng leLLer of March 7 2003 Lhere was noL even any
lndlcaLlon LhaL MLl was Lhe lead company duly auLhorlzed Lo acL on behalf of Lhe
oLhers
So lL necessarlly follows LhaL durlng Lhe blddlng process Comelec had no basls aL
all for deLermlnlng LhaL Lhe alleged consorLlum really exlsLed and was ellglble and
quallfled and LhaL Lhe arrangemenLs among Lhe members were saLlsfacLory and
sufflclenL Lo ensure dellvery on Lhe ConLracL and Lo proLecL Lhe governmenL's
lnLeresL
noLwlLhsLandlng such deflclencles Comelec sLlll deemed Lhe consorLlum" ellglble
Lo parLlclpaLe ln Lhe blddlng proceeded Lo open lLs Second Lnvelope and
evenLually awarded Lhe bld Lo lL even Lhough per Lhe Comelec's own 8l Lhe
8AC should have declared Lhe MC lnellglble Lo bld and reLurned Lhe Second (8ld)
Lnvelope unopened
lnasmuch as Comelec should noL have consldered MLl eL al as comprlslng a
consorLlum or [olnL venLure lL should noL have allowed Lhem Lo avall Lhemselves of
Lhe provlslon ln SecLlon 34 (b) (l) of Lhe l88 for 8A 6937 (Lhe 8ulldCperaLe1ransfer
Law) as amended by 8A 7718 1hls provlslon sLaLes ln parL LhaL a [olnL
venLure/consorLlum proponenL shall be evaluaLed based on Lhe lndlvldual
or collectlve expetleoce of tbe membetfltms of Lhe [olnL venLure or consorLlum and
of Lhe conLracLor(s) LhaL lL has engaged for Lhe pro[ecL arenLheLlcally respondenLs
have unlformly argued LhaL Lhe sald l88 of 8A 6937 as amended have suppleLory
appllcaLlon Lo Lhe lnsLanL case
Pence had Lhe proponenL MLl been evaluaLed based solely on lLs own experlence
flnanclal and operaLlonal Lrack record or lack Lhereof lL would surely noL have
quallfled and would have been lmmedlaLely consldered lnellglble Lo bld as
respondenLs readlly admlL
AL any raLe lL ls clear LhaL comelec qtovely oboseJ lts Jlsctetloo ln arblLrarlly falllng
Lo observe lLs own rules pollcles and guldellnes wlLh respecL Lo Lhe blddlng process
Lhereby negaLlng a falr honesL and compeLlLlve blddlng
ommissioners Not
4wore of onsortium
ln Lhls regard Lhe CourL ls begulled by Lhe sLaLemenLs of Commlssloner llorenLlno
1uason !r glven ln open courL durlng Lhe Cral ArgumenL lasL CcLober 7 2003 1he
good commlssloner afflrmed LhaL he was aware of bls owo petsoool koowleJqe
LhaL Lhere had lndeed been a wrlLLen agreemenL among Lhe consorLlum"
members
34
alLhough lL was an lnLernal maLLer among Lhem
33
and of Lhe facL LhaL
lL would be presenLed by counsel for prlvaLe respondenL
36

Powever under quesLlonlng by Chlef !usLlce Pllarlo C uavlde !r and !usLlce !ose C
vlLug Commlssloner 1uason ln effecL admlLLed LhaL whlle he was Lhe
commlsslonerlncharge of Comelec's Legal ueparLmenL be boJ oevet seeo eveo op
to tbot lote Jote tbe oqteemeot be spoke of
37
under furLher quesLlonlng he was
llkewlse unable Lo provlde any lnformaLlon regardlng Lhe amounLs lnvesLed lnLo Lhe
pro[ecL by several members of Lhe clalmed consorLlum
38
A shorL whlle laLer he
admlLLed LhaL tbe commlssloo boJ oot tokeo o look ot tbe oqteemeot (lf any)
39

Pe Lrled Lo [usLlfy hls poslLlon by clalmlng LhaL he was noL a member of Lhe
8AC nelLher was he Lhe commlsslonerlncharge of Lhe hase ll ModernlzaLlon
pro[ecL (Lhe auLomaLed elecLlon sysLem) buL LhaL ln any case Lhe 8AC and Lhe
hase ll ModernlzaLlon ro[ecL 1eam dld look lnLo Lhe aspecL of Lhe composlLlon of
Lhe consorLlum
lL seems Lo Lhe CourL Lhough LhaL even lf Lhe 8AC or Lhe hase ll 1eam had Laken
charge of evaluaLlng Lhe ellglblllLy quallflcaLlons and credenLlals of Lhe consorLlum
bldder sLlll ln all probablllLy Lhe former would have referred Lhe Lask Lo
Commlssloner 1uason head of Comelec's Legal ueparLmenL 1haL Lask was Lhe
appreclaLlon and evaluaLlon of Lhe legal effecLs and consequences of Lhe Lerms
condlLlons sLlpulaLlons and covenanLs conLalned ln any [olnL venLure agreemenL
consorLlum agreemenL or a slmllar documenL assumlng of course LhaL any of
Lhese was avallable aL Lhe Llme 1he facL LhaL Commlssloner 1uason was barely
aware of Lhe slLuaLlon bespeaks Lhe compleLe absence of such documenL or Lhe
uLLer fallure or neglecL of Lhe Comelec Lo examlne lL assumlng lL was avallable aL
all aL Lhe Llme Lhe award was made on Aprll 13 2003
ln any evenL Lhe CourL noLes for Lhe record LhaL Commlssloner 1uason baslcally
conLradlcLed hls sLaLemenLs ln open courL abouL Lhere belng one wrlLLen
agreemenL among all Lhe consorLlum members when he subsequenLly
referred
40
Lo Lhe four (4) Memoranda of AgreemenL (MCAs) execuLed by Lhem
41

106

AL Lhls [uncLure one mlghL ask WhaL Lhen lf Lhere are four MCAs lnsLead of one
or none aL all? lsn'L lL enough LhaL Lhere are Lhese corporaLlons comlng LogeLher Lo
carry ouL Lhe auLomaLlon pro[ecL? lsn'L lL Lrue as respondenL aver LhaL nowhere ln
Lhe 8l lssued by Comelec ls lL requlred LhaL Lhe members of Lhe [olnL venLure
execuLe a slngle wrlLLen agreemenL Lo prove Lhe exlsLence of a [olnL
venLure lndeed Lhe lnLenLlon Lo be [olnLly and severally llable may be evldenced
noL only by a slngle [olnL venLure agreemenL buL also by supplemenLary documenLs
execuLed by Lhe parLles slgnlfylng such lnLenLlon WhaL Lhen ls Lhe blg deal?
1he problem ls noL LhaL Lhere are four agreemenLs lnsLead of only one 1he
problem ls LhaL comelec oevet botbeteJ to cbeck lL never based lLs declslon on
documenLs or oLher proof LhaL would concreLely esLabllsh Lhe exlsLence of Lhe
clalmed consorLlum or [olnL venLure or agglomeraLlon lL relled merely on Lhe self
servlng represenLaLlon ln an uncorroboraLed leLLer slgned by only one lndlvldual
clalmlng LhaL hls company represenLed a consorLlum" of several dlfferenL
corporaLlons lL concluded forLhwlLh LhaL a consorLlum lndeed exlsLed composed of
such and such members and LhereafLer declared LhaL Lhe enLlLy was ellglble Lo bld
1rue coples of flnanclal sLaLemenLs and lncorporaLlon papers of Lhe alleged
consorLlum" members were submlLLed 8uL Lhese papers dld noL esLabllsh Lhe
exlsLence of a consorLlum as Lhey could have been provlded by Lhe companles
concerned for purposes oLher Lhan Lo prove LhaL Lhey were parL of a consorLlum or
[olnL venLure lor lnsLance Lhe papers may have been lnLended Lo show LhaL Lhose
companles were each quallfled Lo be a subconLracLor (and noLhlng more) ln a
ma[or pro[ecL 1hose documenLs dld noL by Lhemselves supporL Lhe assumpLlon
LhaL a consorLlum or [olnL venLure exlsLed among Lhe companles
ln brlef desplLe Lhe obseoce of compeLenL proof as Lo Lhe exlsLence and ellglblllLy
of Lhe alleged consorLlum (MC) lLs capaclLy Lo dellver on Lhe ConLracL and Lhe
members' [olnL and several llablllLy Lherefor Comelec neverLheless ossomeJ LhaL
such consorLlum exlsLed and was ellglble lL Lhen wenL ahead and consldered Lhe
bld of MC Lo whlch Lhe ConLracL was evenLually awarded ln gross vlolaLlon of Lhe
former's own blddlng rules and procedures conLalned ln lLs 8l 1hereln lles
Comelec's grave abuse of dlscreLlon
5ufficiency of the
lour 4qreements
lnsLead of one mulLllaLeral agreemenL execuLed by and effecLlve and blndlng on all
Lhe flve consorLlum members" as earller clalmed by Commlssloner 1uason ln
open courL lL Lurns ouL LhaL whaL was acLually execuLed were four (4) sepotote
ooJ Jlstloct bllotetol Aqteemeots
42
Cbvlously Comelec was furnlshed coples of
Lhese AgreemenLs only oftetLhe blddlng process had been LermlnaLed as Lhese
were noL lncluded ln Lhe LllglblllLy uocumenLs 1hese AgreemenLs are as follows
A Memorandum of AgreemenL beLween MLl and Sk CC
A Memorandum of AgreemenL beLween MLl and WeSolv
A 1eamlng AgreemenL" beLween MLl and LlecLloncom LLd
A 1eamlng AgreemenL" beLween MLl and eLu1
ln sum each of Lhe four dlfferenL and separaLe bllaLeral AgreemenLs ls valld and
blndlng only beLween MLl and Lhe oLher conLracLlng parLy leavlng Lhe oLher
consorLlum" members LoLal sLrangers LhereLo under Lhls seLup MLl
dealL sepototely wlLh each of Lhe members" and Lhe laLLer (WeSolv Sk CC
LlecLloncom and eLu1) ln Lurn had noLhlng Lo do wlLh one anoLher each deallng
only wlLh MLl
8espondenLs asserL LhaL Lhese four AgreemenLs were sufflclenL for Lhe purpose of
enabllng Lhe corporaLlons Lo sLlll quallfy (even aL LhaL laLe sLage) as a consorLlum or
[olnL venLure slnce Lhe flrsL Lwo AgreemenLs had allegedly set fottb tbe jolot ooJ
sevetol ooJettokloqs omooq tbe pottles whereas Lhe laLLer Lwo clotlfleJ tbe pottles
tespectlve toles wltb teqotJ to tbe ltoject wltb Mll beloq tbe loJepeoJeot
coottoctot ooJ lectloocom ooJ ellu1 tbe sobcoottoctots
AddlLlonally Lhe use of Lhe phrase parLlcular conLracL" ln Lhe Comelec's 8equesL
for roposal (8l) ln connecLlon wlLh Lhe [olnL and several llablllLles of companles
ln a [olnL venLure ls Laken by Lhem Lo mean LhaL all Lhe members of Lhe [olnL
venLure need noL be solldarlly llable for Lhe enLlre pro[ecL or [olnL venLure because
lL ls sufflclenL LhaL Lhe lead company and Lhe member ln charge of a parLlcular
conLracL or aspecL of Lhe [olnL venLure agree Lo be solldarlly llable
AL Lhls polnL lL musL be sLressed mosL vlgorously LhaL Lhe submlsslon of Lhe four
bllaLeral AgreemenLs Lo Comelec oftet tbe eoJ of tbe blJJloq ptocess dld noLhlng Lo
ellmlnaLe Lhe grave abuse of dlscreLlon lL had olteoJy commlLLed on Aprll 13 2003
ueficiencies nove
Not 8een "ured"
ln any evenL lL ls also clalmed LhaL Lhe auLomaLlon ConLracL awarded by Comelec
lncorporaLes all documenLs execuLed by Lhe consorLlum" members even lf Lhese
documenLs are noL referred Lo Lhereln 1he basls of Lhls asserLlon appears Lo be Lhe
passages from SecLlon 14 of Lhe ConLracL whlch ls reproduced as follows
All ConLracL uocumenLs shall form parL of Lhe ConLracL even lf Lhey or any one of
Lhem ls noL referred Lo or menLloned ln Lhe ConLracL as formlng a parL
Lhereof Lach of Lhe ConLracL uocumenLs shall be muLually complemenLary and
explanaLory of each oLher such LhaL whaL ls noLed ln one alLhough noL shown ln Lhe
oLher shall be consldered conLalned ln all and whaL ls requlred by any one shall be
as blndlng as lf requlred by all unless one lLem ls a correcLlon of Lhe oLher
1he lnLenL of Lhe ConLracL uocumenLs ls Lhe proper saLlsfacLory and Llmely
execuLlon and compleLlon of Lhe ro[ecL ln accordance wlLh Lhe ConLracL
uocumenLs ConsequenLly all lLems necessary for Lhe proper and Llmely execuLlon
and compleLlon of Lhe ro[ecL shall be deemed lncluded ln Lhe ConLracL"
1hus lL ls argued LhaL whaLever percelved deflclencles Lhere were ln Lhe
supplemenLary conLracLs Lhose enLered lnLo by MLl and Lhe oLher members of
Lhe consorLlum" as regards Lhelr [olnL and several underLaklngs have been
cured 8eLLer sLlll such deflclencles have supposedly been prevenLed from arlslng
107

as a resulL of Lhe abovequoLed provlslons from whlch lL can be lmmedlaLely
esLabllshed LhaL each of Lhe members of MC assumes Lhe same [olnL and several
llablllLy as Lhe oLher members
1he foregolng argumenL ls unpersuaslve lltst Lhe conLracL belng referred Lo
enLlLled 1he AuLomaLed CounLlng and Canvasslng ro[ecL ConLracL" ls beLween
Comelec andMll noL Lhe alleged consorLlum MC 1o repeaL lL ls MLl noL
MC LhaL ls a parLy Lo Lhe ConLracL Nowbete lo tbot coottoct ls tbete ooy
meotloo of o coosottlom ot jolot veotote of membets tbeteof mocb less of jolot
ooJ sevetol lloblllty Supposedly execuLed someLlme ln May 2003
43
Lhe ConLracL
bears a noLarlzaLlon daLe of !une 30 2003 and conLalns Lhe slgnaLure of Wllly u
?u slgnlng as presldenL of MLl (noL for and on behalf of MC) along wlLh LhaL of
Lhe Comelec chalr lL provldes ln SecLlon 32 LhaL MLl (noL MC) ls Lo supply Lhe
LqulpmenL and perform Lhe Servlces under Lhe ConLracL ln accordance wlLh Lhe
appendlces Lhereof noLhlng whaLsoever ls sald abouL any consorLlum or [olnL
venLure or parLnershlp
5ecooJ Lhe porLlons of SecLlon 14 of Lhe ConLracL reproduced above do oot have
Lhe effecL of curlng (much less prevenLlng) deflclencles ln Lhe bllaLeral agreemenLs
enLered lnLo by MLl wlLh Lhe oLher members of Lhe consorLlum" wlLh respecL Lo
Lhelr [olnL and several llablllLles 1he Lerm ConLracL uocumenLs" as used ln Lhe
quoLed passages of SecLlon 14 has a welldeflned meanlng and acLually refers only
Lo Lhe followlng documenLs
1he ConLracL lLself along wlLh lLs appendlces
1he 8equesL for roposal (also known as 1erms of 8eference") lssued by Lhe
Comelec lncludlng Lhe 1ender lnqulrles and 8ld 8ulleLlns
1he 1ender roposal submlLLed by MLl
ln oLher words Lhe Lerm ConLracL uocumenLs" cannoL be undersLood as referrlng
Lo or lncludlng Lhe MCAs and Lhe 1eamlng AgreemenLs enLered lnLo by MLl wlLh
Sk CC WeSolv LlecLloncom and eLu1 1hls much ls very clear and admlLs of no
debaLe 1he aLLempL Lo use Lhe provlslons of SecLlon 14 Lo shore up Lhe MCAs and
Lhe 1eamlng AgreemenLs ls slmply unwarranLed
1bltJ and lasL we fall Lo see how respondenLs can arrlve aL Lhe concluslon LhaL
from Lhe abovequoLed provlslons lL can be lmmedlaLely esLabllshed LhaL each of
Lhe members of MC assumes Lhe same [olnL and several llablllLy as Lhe oLher
members Larller respondenLs clalmed exacLly Lhe opposlLe LhaL Lhe Lwo MCAs
(beLween MLl and Sk CC and beLween MLl and WeSolv) had set fottb tbe jolot
ooJ sevetol ooJettokloqs omooq tbe pottles whereas Lhe Lwo 1eamlng
AgreemenLs clotlfleJ tbe pottles tespectlve toles wltb teqotJ to tbe ltoject wltb
Mll beloq tbe loJepeoJeot coottoctot ooJ lectloocom ooJ ellu1 tbe
sobcoottoctots
Cbvlously glven Lhe dlfferences ln Lhelr relaLlonshlps Lhelr respecLlve llablllLles
cannoL be Lhe same reclsely Lhe very clear Lerms and sLlpulaLlons conLalned ln
Lhe MCAs and Lhe 1eamlng AgreemenLs enLered lnLo by MLl wlLh Sk CC
WeSolv LlecLloncom and eLu1 negaLe Lhe ldea LhaL Lhese members" are on a
par wlLh one anoLher and are as such assumlng Lhe same [olnL and several
llablllLy
Moreover respondenLs have earller selzed upon Lhe use of Lhe Lerm parLlcular
conLracL" ln Lhe Comelec's 8equesL for roposal (8l) ln order Lo argue LhaL all Lhe
members of Lhe [olnL venLure dld noL oeeJ to be sollJotlly lloble fot tbe eotlte
ptoject or [olnL venLure lL was sufflclenL LhaL Lhe lead company and Lhe member ln
charge of a parLlcular conLracL or aspecL of Lhe [olnL venLure would agree Lo be
solldarlly llable 1he glarlng lack of conslsLency leaves us aL a loss Are respondenLs
Lrylng Lo esLabllsh Lhe same [olnL and solldary llablllLy among all Lhe members" or
noL?
nforcement of
Liobi/ities Prob/emotic
nexL lL ls also malnLalned LhaL Lhe auLomaLlon ConLracL beLween Comelec and Lhe
MLl coofltms tbe sollJoty ooJettokloq of tbe leoJ compooy ooJ tbe coosottlom
membet coocetoeJ for each parLlcular ConLracL lnasmuch as Lhe poslLlon of MLl
and anyone else performlng Lhe servlces conLemplaLed under Lhe ConLracL ls
descrlbed Lhereln as tbot of oo loJepeoJeot coottoctot
1he CourL does noL see however how Lhls concluslon was arrlved aL ln Lhe flrsL
place Lhe conLracLual provlslon belng relled upon by respondenLs ls ArLlcle 14
lndependenL ConLracLors" whlch sLaLes #Notbloq cootoloeJ betelo sboll be
coosttoeJ os estobllsbloq ot cteotloq betweeo tbe cOMlc ooJ MCA tbe
telotloosblp of employee ooJ employet ot ptloclpol ooJ oqeot lt beloq ooJetstooJ
tbot tbe posltloo of MCA ooJ of ooyooe petfotmloq tbe 5etvlces cootemploteJ
ooJet tbls coottoct ls tbot of oo loJepeoJeot coottoctot
Cbvlously Lhe lnLenL behlnd Lhe provlslon was slmply Lo avold Lhe creaLlon of an
employeremployee or a prlnclpalagenL relaLlonshlp and Lhe compllcaLlons LhaL lL
would produce Pence Lhe ArLlcle sLaLes LhaL Lhe role or poslLlon of MLl or
anyone else performlng on lLs behalf ls LhaL of an lndependenL conLracLor lL ls
obvlous Lo Lhe CourL LhaL respondenLs aresttetcbloq mottets too fot when Lhey
clalm LhaL because of Lhls provlslon Lhe ConLracL ln effecL conflrms Lhe sollJoty
ooJettokloq of Lhe lead company and Lhe consorLlum member concerned for Lhe
parLlcular phase of Lhe pro[ecL 1hls asserLlon ls an absoluLe ooo sepoltot
nforcement of Liobi/ities
under the ivi/ ode Not Possib/e
ln any evenL lL ls clalmed LhaL Comelec may sLlll enforce Lhe llablllLy of Lhe
consorLlum" members under Lhe Clvll Code provlslons on pottoetsblp reasonlng
LhaL MLl eL altepteseoteJ tbemselves os pottoets ooJ membets of Mlc fot
potposes of blJJloq fot tbe ltoject 1bey ote tbetefote lloble to tbe comelec to tbe
exteot tbot tbe lottet telleJ opoo socb tepteseototloo 1belt lloblllty os pottoets ls
sollJoty wltb tespect to evetytbloq cbotqeoble to tbe pottoetsblp ooJet cettolo
cooJltloos
108

1he CourL has Lwo polnLs Lo make wlLh respecL Lo Lhls argumenL lltst lL musL be
recalled LhaL Sk CC WeSolv LlecLloncom and eLu1 never represenLed
Lhemselves as parLners and members of MC wheLher for purposes of blddlng or
for someLhlng else lL was MLl olooe LhaL represenLed Lhem Lo be members of a
consorLlum" lL supposedly headed 1hus lLs acLs may noL necessarlly be held
agalnsL Lhe oLher members"
5ecooJ Lhls argumenL of Lhe CSC ln lLs Memorandum
44
mlghL posslbly apply lo tbe
obseoce of o jolot veotote oqteemeot ot some otbet wtltloq LhaL dlscloses Lhe
relaLlonshlp of Lhe members" wlLh one anoLher 8uL preclsely Lhls case does noL
deal wlLh a slLuaLlon ln whlch Lhere ls noLhlng ln wrlLlng Lo serve as reference
leavlng Comelec Lo rely on mere represenLaLlons and Lherefore [usLlfylng a falllng
back on Lhe rules on parLnershlp lor agaln Lhe Lerms and sLlpulaLlons of Lhe
MCAs enLered lnLo by MLl wlLh Sk CC and WeSolv as well as Lhe 1eamlng
AgreemenLs of MLl wlLh LlecLloncom and eLu1 (coples of whlch have been
furnlshed Lhe Comelec) are very clear wlLh respecL Lo Lhe exLenL and Lhe llmlLaLlons
of Lhe flrms' respecLlve llablllLles
ln Lhe case of WeSolv and Sk CC Lhelr MCAs sLaLe LhaL Lhelr llablllLles whlle [olnL
and several wlLh MLl are llmlteJ ooly to tbe pottlcolot oteos of wotk wbetelo tbelt
setvlces ote eoqoqeJ ot tbelt ptoJocts otlllzeJ As for LlecLloncom and eLu1 Lhelr
separaLe 1eamlng AgreemenLs" speclflcally ascrlbe Lo Lhem Lhe role of
subconLracLor vlsvls MLl as conLracLor and based on Lhe Lerms of Lhelr
parLlcular agreemenLs oeltbet lectloocom oot ellu1 ls wltb Mll jolotly ooJ
sevetolly lloble to comelec
43
lL follows Lhen LhaL ln Lhe lnsLanL case Lhere ls no
[usLlflcaLlon for anyone much less Comelec Lo resorL Lo Lhe rules on parLnershlp
and parLners' llablllLles
/iqibi/ity of o onsortium
8osed on the o//ective
uo/ificotions of lts Members
8espondenLs declare LhaL for purposes of assesslng Lhe ellglblllLy of Lhe bldder Lhe
members of MC should be evaluaLed on a collecLlve basls 1herefore Lhey
conLend Lhe fallure of MLl Lo submlL flnanclal sLaLemenLs (on accounL of lLs recenL
lncorporaLlon) should noL by lLself dlsquallfy MC slnce Lhe oLher members of Lhe
consorLlum" could meeL Lhe crlLerla seL ouL ln Lhe 8l
1hus accordlng Lo respondenLs Lhe collecLlve naLure of Lhe underLaklng of Lhe
members of MC Lhelr conLrlbuLlon of asseLs and sharlng of rlsks and Lhe
communlLy of Lhelr lnLeresL ln Lhe performance of Lhe ConLracL lead Lo Lhese
reasonable concluslons (1) LhaL Lhelr collectlve poollflcotloos should be Lhe basls
for evaluaLlng Lhelr ellglblllLy (2) LhaL Lhe sheer enormlLy of Lhe pro[ecL renders lL
lmprobable Lo expecL any slngle enLlLy Lo be able Lo comply wlLh all Lhe ellglblllLy
requlremenLs and underLake Lhe pro[ecL by lLself and (3) LhaL as argued by Lhe
CSC Lhe 8l allows blds from manufacLurers suppllers and/or dlsLrlbuLors LhaL
have formed Lhemselves lnLo a [olnL venLure ln recognlLlon of Lhe vlrLual
lmposslblllLy of a slngle enLlLy's ablllLy Lo respond Lo Lhe lnvlLaLlon Lo 8ld
AddlLlonally argues Lhe Comelec Lhe lmplemenLlng 8ules and 8egulaLlons of 8A
6937 (Lhe 8ulldCperaLe1ransfer Law) as amended by 8A 7718 would be
appllcable as proponenLs of 8C1 pro[ecLs usually form [olnL venLures or
consorLlums under Lhe l88 a [olnL venLure/consorLlum proponenL shall be
evaluaLed based on Lhe lndlvldual or Lhe collecLlve experlence of Lhe memberflrms
of Lhe [olnL venLure/consorLlum and of Lhe conLracLors Lhe proponenL has engaged
for Lhe pro[ecL
unforLunaLely Lhls argumenL seems Lo assume LhaL Lhe collecLlve" naLure of Lhe
underLaklng of Lhe members of MC Lhelr conLrlbuLlon of asseLs and sharlng of
rlsks and Lhe communlLy" of Lhelr lnLeresL ln Lhe performance of Lhe ConLracL
enLlLle MC Lo be LreaLed as a [olnL venLure or consorLlum and Lo be evaluaLed
accordlngly on Lhe basls of Lhe members' collecLlve quallflcaLlons when ln facL Lhe
evldence before Lhe CourL suggesL oLherwlse
1hls CourL ln kllosboyoo v Coloqooo
46
deflned jolot veotote as an assoclaLlon of
persons or companles [olnLly underLaklng some commerclal enLerprlse generally
all conLrlbuLe asseLs and share rlsks lL requlres a communlLy of lnLeresL ln Lhe
performance of Lhe sub[ecL maLLer a rlghL Lo dlrecL and govern Lhe pollcy ln
connecLlon LherewlLh and a duLy whlch may be alLered by agreemenL Lo share
boLh ln proflL and losses"
Colng back Lo Lhe lnsLanL case lL should be recalled LhaL Lhe auLomaLlon ConLracL
wlLh Comelec was noL execuLed by Lhe consorLlum" MC or by MLl for and on
behalf of MC buL by MLl petloJ 1he sald ConLracL conLalns oo meotloo
wbotsoevet of any consorLlum or members Lhereof 1hls facL alone seems Lo
conLradlcL all Lhe supposlLlons abouL a [olnL underLaklng LhaL would normally apply
Lo a [olnL venLure or consorLlum LhaL lL ls a commerclal enLerprlse lnvolvlng a
communlLy of lnLeresL a sharlng of rlsks proflLs and losses and so on
now leL us conslder Lhe four bllaLeral AgreemenLs sLarLlng wlLh Lhe Memorandum
of AgreemenL beLween MLl and WeSolv Cpen CompuLlng lnc daLed March 3
2003 1he body of Lhe MCA conslsLs of [usL seven (7) shorL paragraphs LhaL would
easlly flL ln one page lL reads as follows
1 1he parLles agree Lo cooperaLe ln successfully lmplemenLlng Lhe ro[ecL ln
Lhe subsLance and form as may be mosL beneflclal Lo boLh parLles and oLher
subconLracLors lnvolved ln Lhe ro[ecL
2 Mega aclflc shall be responslble for any conLracL negoLlaLlons and slgnlng
wlLh Lhe CCMLLLC and sub[ecL Lo Lhe laLLer's approval agrees Lo glve WeSolv an
opporLunlLy Lo be presenL aL meeLlngs wlLh Lhe CCMLLLC concernlng WeSolv's
porLlon of Lhe ro[ecL
3 WeSolv shall be [olnLly and severally llable wlLh Mega aclflc only for Lhe
parLlcular producLs and/or servlces supplled by Lhe former for Lhe ro[ecL
109

4 Lach parLy shall bear lLs own cosLs and expenses relaLlve Lo Lhls agreemenL
unless oLherwlse agreed upon by Lhe parLles
3 1he parLles underLake Lo do all acLs and such oLher Lhlngs lncldenLal Lo
necessary or deslrable or Lhe aLLalnmenL of Lhe ob[ecLlves and purposes of Lhls
AgreemenL
6 ln Lhe evenL LhaL Lhe parLles fall Lo agree on Lhe Lerms and condlLlons of Lhe
supply of Lhe producLs and servlces lncludlng buL noL llmlLed Lo Lhe scope of Lhe
producLs and servlces Lo be supplled and paymenL Lerms WeSolv shall cease Lo be
bound by lLs obllgaLlons sLaLed ln Lhe aforemenLloned paragraphs
7 Any dlspuLe arlslng from Lhls AgreemenL shall be seLLled amlcably by Lhe
parLles whenever posslble Should Lhe parLles be unable Lo do so Lhe parLles
hereby agree Lo seLLle Lhelr dlspuLe Lhrough arblLraLlon ln accordance wlLh Lhe
exlsLlng laws of Lhe 8epubllc of Lhe hlllpplnes" (underscorlng supplled)
Lven shorLer ls Lhe Memorandum of AgreemenL beLween MLl and Sk CC Co LLd
daLed March 9 2003 Lhe body of whlch conslsLs of only slx (6) paragraphs whlch
we quoLe
1 All parLles agree Lo cooperaLe ln achlevlng Lhe ConsorLlum's ob[ecLlve of
successfully lmplemenLlng Lhe ro[ecL ln Lhe subsLance and form as may be mosL
beneflclal Lo Lhe ConsorLlum members and ln accordance w/ Lhe demand of Lhe
8l
2 Mega aclflc shall have full powers and auLhorlLy Lo represenL Lhe
ConsorLlum wlLh Lhe Comelec and Lo enLer and slgn for and ln behalf of lLs
members any and all agreemenL/s whlch maybe requlred ln Lhe lmplemenLaLlon of
Lhe ro[ecL
3 Lach of Lhe lndlvldual members of Lhe ConsorLlum shall be [olnLly and
severally llable wlLh Lhe Lead llrm for Lhe parLlcular producLs and/or servlces
supplled by such lndlvldual member for Lhe pro[ecL ln accordance wlLh Lhelr
respecLlve underLaklng or sphere of responslblllLy
4 Lach parLy shall bear lLs own cosLs and expenses relaLlve Lo Lhls agreemenL
unless oLherwlse agreed upon by Lhe parLles
3 1he parLles underLake Lo do all acLs and such oLher Lhlngs lncldenLal Lo
necessary or deslrable for Lhe aLLalnmenL of Lhe ob[ecLlves and purposes of Lhls
AgreemenL
6 Any dlspuLe arlslng from Lhls AgreemenL shall be seLLled amlcably by Lhe
parLles whenever posslble Should Lhe parLles be unable Lo do so Lhe parLles
hereby agree Lo seLLle Lhelr dlspuLe Lhrough arblLraLlon ln accordance wlLh Lhe
exlsLlng laws of Lhe 8epubllc of Lhe hlllpplnes" (underscorlng supplled)
lL wlll be noLed LhaL Lhe Lwo AgreemenLs quoLed above are very slmllar ln
wordlng nelLher of Lhem conLalns any speclflcs or deLalls as Lo Lhe exacL naLure
and scope of Lhe parLles' respecLlve underLaklngs performances and dellverables
under Lhe AgreemenL wlLh respecL Lo Lhe auLomaLlon pro[ecL Llkewlse Lhe Lwo
AgreemenLs are qulLe berefL of pesosandcenLavos daLa as Lo Lhe amounL of
lnvesLmenLs each parLy conLrlbuLes lLs respecLlve share ln Lhe revenues and/or
proflL from Lhe ConLracL wlLh Comelec and so forLh all of whlch are normal for
agreemenLs of Lhls naLure ?eL accordlng Lo publlc and prlvaLe respondenLs Lhe
parLlclpaLlon of MLl WeSolv and Sk CC comprlses fully 90 percenL of Lhe enLlre
underLaklng wlLh respecL Lo Lhe elecLlon auLomaLlon pro[ecL whlch ls worLh
abouL 13 bllllon
As for LlecLloncom and eLu1 Lhe separaLe 1eamlng AgreemenLs" Lhey enLered
lnLo wlLh MLl for Lhe remalnlng 10 percenL of Lhe enLlre pro[ecL underLaklng are
lronlcally much longer and more deLalled Lhan Lhe MCAs dlscussed
earller AlLhough speclflcally ascrlblng Lo Lhem Lhe role of sobcoottoctot vlsvls
MLl as conLracLor Lhese AgreemenLs are however compleLely devold of any
prlclng daLa or paymenL Lerms Lven Lhe appended Schedules supposedly
conLalnlng prlces of goods and servlces are shorn of any prlce daLa Agaln as
menLloned earller based on Lhe Lerms of Lhelr parLlcular AgreemenLs nelLher
LlecLloncom nor eLu1 wlLh MLl ls [olnLly and severally llable Lo Comelec
lL ls dlfflculL Lo lmaglne how Lhese bare AgreemenLs especlally Lhe flrsL Lwo
could be lmplemenLed ln pracLlce and how a dlspuLe beLween Lhe parLles or a
clalm by Comelec agalnsL Lhem for lnsLance could be resolved wlLhouL lengLhy and
deblllLaLlng llLlgaLlons AbsenL any clearcuL sLaLemenL as Lo Lhe exacL naLure and
scope of Lhe parLles' respecLlve underLaklngs commlLmenLs dellverables and
covenanLs one parLy or anoLher can easlly dodge lLs obllgaLlon and deny or conLesL
lLs llablllLy under Lhe AgreemenL or clalm LhaL lL ls Lhe oLher parLy LhaL should have
dellvered buL falled Lo
Llkewlse ln Lhe absence of deflnlLe lndlcaLors as Lo Lhe amounL of lnvesLmenLs Lo
be conLrlbuLed by each parLy dlsbursemenLs for expenses Lhe parLles' respecLlve
shares ln Lhe proflLs and Lhe llke lL seems Lo Lhe CourL LhaL Lhls slLuaLlon could
readlly glve rlse Lo all klnds of mlsundersLandlngs and dlsagreemenLs over money
maLLers
under such a scenarlo lL wlll be exLremely dlfflculL for Comelec Lo enforce Lhe
supposed [olnL and several llablllLles of Lhe members of Lhe consorLlum" 1he
CourL ls noL even menLlonlng Lhe posslblllLy of a slLuaLlon arlslng from a fallure of
WeSolv and MLl Lo agree on Lhe scope Lhe Lerms and Lhe condlLlons for Lhe
supply of Lhe producLs and servlces under Lhe AgreemenL ln LhaL slLuaLlon by
vlrLue of paragraph 6 of lLs MCA WeSolv would perforce cease Lo be bound by lLs
obllgaLlons lncludlng lLs [olnL and solldary llablllLy wlLh MLl under Lhe MCA
and could forLhwlLh dlsengage from Lhe pro[ecL LffecLlvely WeSolv could aL any
Llme unllaLerally exlL from lLs MCA wlLh MLl by slmply falllng Lo agree Where
would LhaL ouLcome leave MLl and Comelec?
1o Lhe CourL Lhls sLrange and begulllng arrangemenL of MLl wlLh Lhe oLher
companles does noL quallfy Lhem Lo be LreaLed as a consorLlum or [olnL venLure aL
leasL of Lhe Lype LhaL governmenL agencles llke Lhe Comelec should be deallng
110

wlLh WlLh more reason ls lL unable Lo agree Lo Lhe proposal Lo evaluaLe Lhe
members of MC on a collecLlve basls
ln any evenL Lhe MC members clalm Lo be a [olnL venLure/consorLlum and
respondenLs have conslsLenLly been argulng LhaL Lhe l88 for 8A 6937 as amended
should be applled Lo Lhe lnsLanL case ln order Lo allow a collecLlve evaluaLlon of
consorLlum members Surprlslngly conslderlng Lhese facLs respondenLs have noL
deemed lL necessary for MC members Lo comply wlLh SecLlon 34 (a) (lll) of Lhe l88
for 8A 6937 as amended
Accordlng Lo Lhe aforemenLloned provlslon lf Lhe pro[ecL proponenL ls a [olnL
venLure or consorLlum tbe membets ot pottlclpoots tbeteof ote tepolteJ to sobmlt
o swoto stotemeot tbot lf owotJeJ tbe coottoct tbey sboll bloJ tbemselves to be
jolotly sevetolly ooJ sollJotlly lloble fot tbe ptoject ptopooeots obllqotloos
tbeteooJet 1hls provlslon was supposed Lo mlrror SecLlon 3 of 8A 6937 as
amended whlch sLaLes #lo oll coses o coosottlom tbot pottlclpotes lo o blJ most
pteseot ptoof tbot tbe membets of tbe coosottlom bove boooJ tbemselves jolotly
ooJ sevetolly to ossome tespooslblllty fot ooy ptoject 1be wltbJtowol of ooy
membet of tbe coosottlom ptlot to tbe lmplemeototloo of tbe ptoject coolJ be o
qtoooJ fot tbe coocellotloo of tbe coottoct
1he CourL has cerLalnly noL seen any [olnL and several underLaklng by Lhe MC
members LhaL even approxlmaLes Lhe Lenor of LhaL whlch ls descrlbed above We
fall Lo see why respondenLs should lnvoke Lhe l88 lf lL ls for Lhelr beneflL buL refuse
Lo comply wlLh lL oLherwlse
8
u5@ @echnico/ @ests l/unked by the
4utomoted ountinq Mochines
LeL us now move Lo Lhe second subLoplc whlch deals wlLh Lhe subsLanLlve
lssue Lhe ACM's fallure Lo pass Lhe LesLs of Lhe ueparLmenL of Sclence and
1echnology (uCS1)
AfLer respondenL consorLlum" and Lhe oLher bldder 1lM had submlLLed Lhelr
respecLlve blds on March 10 2003 Lhe Comelec's 8AC Lhrough lLs 1echnlcal
Worklng Croup (1WC) and Lhe uCS1 evaluaLed Lhelr Lechnlcal
proposals 8equlremenLs LhaL were hlghly Lechnlcal ln naLure and LhaL requlred Lhe
use of cerLaln equlpmenL ln Lhe evaluaLlon process were referred Lo Lhe uCS1 for
LesLlng 1he ueparLmenL reporLed Lhus
1LS1 kLSUL1S MA1kIk
47

1echn|ca| Lva|uat|on of Automated Count|ng Mach|ne
Accordlng Lo respondenLs lL was only afLer Lhe 1WC and Lhe uCS1 had conducLed
Lhelr separaLe LesLs and submlLLed Lhelr respecLlve reporLs LhaL Lhe 8AC on Lhe
basls of Lhese reporLs formulaLed lLs commenLs/recommendaLlons on Lhe blds of
Lhe consorLlum and 1lM
1he 8AC ln lLs 8eporL daLed Aprll 21 2003 recommended LhaL Lhe hase ll pro[ecL
lnvolvlng Lhe acqulslLlon of auLomaLed counLlng machlnes be awarded Lo MLl lL
sald
AfLer lnclslve analysls of Lhe Lechnlcal reporLs of Lhe uCS1 and Lhe 1echnlcal
Worklng Croup for hase ll AuLomaLed CounLlng Machlne Lhe 8AC conslders
adapLablllLy Lo advances ln modern Lechnology Lo ensure an effecLlve and efflclenL
meLhod as well as Lhe securlLy and lnLegrlLy of Lhe sysLem
1he resulLs of Lhe evaluaLlon conducLed by Lhe 1WC and LhaL of Lhe uCS1 (14 Aprll
2003 reporL) would show Lhe apparenL advanLage of Megaaclflc over Lhe oLher
compeLlLor 1lM
1he 8AC furLher noLed LhaL boLh Megaaclflc and 1lM obLalned some 'falled
marks' ln Lhe Lechnlcal evaluaLlon ln general Lhe 'falled marks' of 1oLal
lnformaLlon ManagemenL as enumeraLed above affecL Lhe counLlng machlne lLself
whlch are maLerlal ln naLure consLlLuLlng noncompllance Lo Lhe 8l Cn Lhe oLher
hand Lhe 'falled marks' of Megaaclflc are mere formallLles on cerLaln
documenLary requlremenLs whlch Lhe 8AC may walve as clearly lndlcaLed ln Lhe
lnvlLaLlon Lo 8ld
ln Lhe uCS1 LesL 1lM obLalned 12 falled marks and mosLly aLLrlbuLed Lo Lhe
counLlng machlne lLself as sLaLed earller 1hese are requlremenLs of Lhe 8l and
Lherefore Lhe 8AC cannoL dlsregard Lhe same
Megaaclflc falled ln 8 lLems however Lhese are mosLly on Lhe sofLware whlch can
be correcLed by reprogrammlng Lhe sofLware and Lherefore can be readlly
correcLed
1he 8AC verbally lnqulred from uCS1 on Lhe sLaLus of Lhe reLesL of Lhe counLlng
machlnes of Lhe 1lM and was lnformed LhaL Lhe reporL wlll be forLhcomlng afLer Lhe
holy week 1he 8AC was lnformed LhaL Lhe reLesL ls on a dlfferenL parameLers
Lhey're belng Lwo dlfferenL machlnes belng LesLed Cne purposely Lo LesL lf
prevlously read balloLs wlll be read agaln and Lhe oLher for Lhe oLher feaLures such
as Lwo slded balloLs
1he sald machlne and Lhe sofLware Lherefore may noL be consldered Lhe same
machlne and program as submlLLed ln Lhe 1echnlcal proposal and Lherefore may be
consldered an enhancemenL of Lhe orlglnal proposal
Advance lnformaLlon relayed Lo Lhe 8AC as of 140 M of 13 Aprll 2003 by
LxecuLlve ulrecLor 8onaldo 1 vllorla of uCS1 ls LhaL Lhe resulL of Lhe LesL ln Lhe Lwo
counLlng machlnes of 1lM conLalns subsLanLlal errors LhaL may lead Lo Lhe fallure of
Lhese machlnes based on Lhe speclflc lLems of Lhe 8l LhaL uCS1 has Lo cerLlfy
PNlN6 l llN4Nl4L 8lu5
1he 8AC on 13 Aprll 2003 afLer noLlfylng Lhe concerned bldders opened Lhe
flnanclal blds ln Lhelr presence and Lhe resulLs were as follows
Megaaclflc
CpLlon 1 CuLrlghL purchase 8ld rlce of hp124894908800
CpLlon 2 Lease opLlon
111

70 uown paymenL of cosL of hardware or hp64273373707
8emalnder payable over 30 monLhs or a LoLal of hp64273373707
ulscounL raLe of 13 pa or 12332 per monLh
1oLal number of AuLomaLed CounLlng Machlne 1769 ACMs (naLlonwlde)
1lM
1oLal 8ld rlce hp129786036000
1oLal number of AuLomaLed CounLlng Machlne 2272 ACMs (Mlndanao and
nC8 only)
remlses consldered lL appears LhaL Lhe bld of Mega aclflc ls Lhe lowesL
calculaLed responslve bld and Lherefore Lhe 8lds and Awards CommlLLee (8AC)
recommends LhaL Lhe hase ll pro[ecL re AuLomaLed CounLlng Machlne be awarded
Lo Mega aclflc eSoluLlons lnc"
48

1he 8AC however also sLaLed on page 4 of lLs 8eporL #8oseJ oo tbe 14 Aptll 200J
tepott (1oble 6) of tbe uO51 lt oppeots tbot botb Meqoloclflc ooJ 1lM (1otol
lofotmotloo Moooqemeot cotpototloo) folleJ to meet some of tbe
tepoltemeots 8elow ls o compototlve pteseototloo of tbe tepoltemeots wbetelo
Meqoloclflc ot 1lM ot botb of tbem folleJ x x x WhaL followed was a llsL of key
requlremenLs" referrlng Lo Lechnlcal requlremenLs and an lndlcaLlon of whlch of
Lhe Lwo bldders had falled Lo meeL Lhem
loi/ure to Meet the
kequired 4ccurocy kotinq
1he flrsL of Lhe key requlremenLs was LhaL Lhe counLlng machlnes were Lo have
an accuracy rat|ng of at |east 99999S percent 1he 8AC 8eporL lndlcaLes LhaL boLh
Mega aclflc and 1lM falled Lo meeL Lhls sLandard
1he key requlremenL of accuracy raLlng happens Lo be parL and parcel of Lhe
Comelec's 8equesL for roposal (8l) 1he 8l on page 26 even sLaLes LhaL Lhe
balloL counLlng machlnes and balloL counLlng sofLware #most bove oo occotocy
totloq of 999995 (noL merely 99993) ot bettet os cettlfleJ by o telloble
loJepeoJeot testloq oqeocy
When quesLloned on Lhls maLLer durlng Lhe Cral ArgumenL Commlssloner 8orra
Lrled Lo wash hls hands by clalmlng LhaL Lhe requlred accuracy raLlng of 999993
percenL had been seL by a prlvaLe secLor group ln Landem wlLh Comelec Pe added
LhaL Lhe Commlsslon had merely adopLed Lhe accuracy raLlng as parL of Lhe group's
recommended bld requlremenLs whlch lL had noL boLhered Lo amend even afLer
belng advlsed by uCS1 LhaL such sLandard was unachlevable 1hls excuse however
does noL ln any way lessen Comelec's responslblllLy Lo adhere Lo lLs own publlshed
blddlng rules as well as Lo see Lo lL LhaL Lhe consorLlum lndeed meeLs Lhe accuracy
sLandard wblcbevet occotocy totloq ls tbe tlqbt stooJotJ wbetbet 99995 ot
999995 petceot tbe foct temolos tbot tbe mocbloes of tbe socolleJ #coosottlom
folleJ to eveo teocb tbe lesset of tbe two Cn Lhls basls alone lL oughL Lo have been
dlsquallfled and lLs bld re[ecLed ouLrlghL
AL Lhls polnL Lhe CourL sLresses LhaL Lhe essence of publlc blddlng ls vlolaLed by Lhe
pracLlce of requlrlng very hlgh sLandards or unreallsLlc speclflcaLlons LhaL cannoL be
meL llke Lhe 999993 percenL accuracy raLlng ln Lhls case only Lo waLer Lhem
down oftet Lhe bld has been award Such scheme whlch dlscourages Lhe enLry of
prospecLlve booo flJebldders ls ln facL a sure lndlcaLlon of fraud ln Lhe blddlng
deslgned Lo ellmlnaLe falr compeLlLlon CerLalnly lf no bldder meeLs Lhe mandaLory
requlremenLs sLandards or speclflcaLlons Lhen no award should be made and a
falled blddlng declared
loi/ure of 5oftwore to uetect
Previous/y uown/ooded uoto
lurLhermore on page 6 of Lhe 8AC 8eporL lL appears LhaL Lhe consorLlum" as well
as 1lM falled Lo meeL anoLher key requlremenL for Lhe counLlng machlne's
sofLware program Lo be ab|e to detect prev|ous|y don|oaded prec|nct resu|ts and
to prevent these from be|ng entered aga|n |nto the count|ng mach|ne 1hls same
deflclency on Lhe parL of boLh bldders reappears on page 7 of Lhe 8AC 8eporL as a
resulL of Lhe recurrence of Lhelr fallure Lo meeL Lhe sald key requlremenL
1haL Lhe ablllLy Lo deLecL prevlously downloaded daLa aL dlfferenL canvasslng or
consolldaLlon levels ls deemed of uLmosL lmporLance can be seen from Lhe facL LhaL
lL ls repeaLed Lhree Llmes ln Lhe 8l Cn page 30 Lhereof we flnd Lhe requlremenL
LhaL Lhe clty/moolclpol canvasslng sysLem sofLware musL be able Lo deLecL
prevlously downloaded preclncL resulLs and prevenL Lhese from belng lnpuLLed"
agaln lnLo Lhe sysLem Agaln on page 32 of Lhe 8l we read LhaL
Lhe ptovloclol/Jlsttlct canvasslng sysLem sofLware musL be able Lo deLecL prevlously
downloaded clLy/munlclpal resulLs and prevenL Lhese from belng lnpuLLed" agaln
lnLo Lhe sysLem And once more on page 33 of Lhe 8l we flnd Lhe requlremenL
LhaL Lhe ootloool canvasslng sysLem sofLware musL be able Lo deLecL prevlously
downloaded provlnclal/dlsLrlcL resulLs and prevenL Lhese from belng lnpuLLed"
agaln lnLo Lhe sysLem
Cnce agaln Lhough Comelec chose Lo lgnore Lhls cruclal deflclency whlch should
have been a cause for Lhe gravesL concern Come May 2004 unscrupulous persons
may Lake advanLage of and explolL such deflclency by repeaLedly downloadlng and
feedlng lnLo Lhe compuLers resulLs favorable Lo a parLlcular candldaLe or
candldaLes Je ore thus confronted with the qrim prospect of e/ection froud on o
mossive sco/e by meons of just o few key strokes @he morve/s ond woes of the
e/ectronic oqe!
lnobi/ity to Print
the 4udit @roi/
8uL LhaL grlm prospecL ls noL all 1he 8AC 8eporL on pages 6 and 7 lndlcaLe LhaL
Lhe ACMs of boLh bldders were unab|e to pr|nt the aud|t tra|| wlLhouL any loss of
daLa ln Lhe case of MC Lhe audlL Lrall sysLem was noL yeL lncorporaLed" lnLo lLs
ACMs
112

1hls parLlcular deflclency ls slgnlflcanL noL only Lo Lhls blddlng buL Lo Lhe cause of
free and credlble elecLlons 1he purpose of requlrlng audlL Lralls ls Lo enable
Comelec Lo Lrace and verlfy Lhe ldenLlLles of Lhe ACM operaLors responslble for daLa
enLry and downloadlng as well as Lhe Llmes when Lhe varlous daLa were
downloaded lnLo Lhe canvasslng sysLem ln order Lo foresLall fraud and Lo ldenLlfy
Lhe perpeLraLors
1hus Lhe 8l on page 27 sLaLes LhaL Lhe bollot coootloq mocbloes ooJ bollot
coootloq softwote musL prlnL an audlL Lrall of all machlne operaLlons for
documenLaLlon and verlflcaLlon purposes lurLhermore Lhe audlL Lrall musL be
sLored on Lhe lnLernal sLorage devlce and be avallable on demand for fuLure
prlnLlng and verlfylng Cn pages 3031 Lhe 8l also requlres LhaL
Lhe clty/moolclpol canvasslng sysLem softwote be able Lo prlnL an audlL Lrall of Lhe
canvasslng operaLlons lncludlng Lhereln such daLa as Lhe daLe and Llme Lhe
canvasslng program was sLarLed Lhe logln of Lhe auLhorlzed users (Lhe ldenLlLy of
Lhe machlne operaLors) Lhe daLe and Llme Lhe canvass daLa were downloaded lnLo
Lhe canvasslng sysLem and so on and so forLh Cn page 33 of Lhe 8l we flnd Lhe
same audlL Lrall requlremenL wlLh respecL Lo Lhe ptovloclol/Jlsttlct canvasslng
sysLem softwote and agaln on pages 3336 Lhereof Lhe same audlL Lrall
requlremenL wlLh respecL Lo Lhe ootloool canvasslng sysLem softwote
1haL Lhls requlremenL for prlnLlng audlL Lralls ls noL Lo be llghLly brushed aslde by
Lhe 8AC or Comelec lLself as a mere formallLy or LechnlcallLy can be readlly gleaned
from Lhe provlslons of SecLlon 7 of 8A 8436 whlch auLhorlzes Lhe Commlsslon Lo
use an auLomaLed sysLem for elecLlons
1he sald provlslon whlch respondenLs have quoLed several Llmes provldes LhaL
ACMs are Lo possess cerLaln feaLures dlvlded lnLo Lwo classes Lhose LhaL Lhe
sLaLuLe lLself conslders mooJototy and oLher feaLures or capablllLles LhaL Lhe law
deems opLlonal Among Lhose consldered mandaLory are provlslons for audlL
Lralls"! SecLlon 7 reads as follows#1be 5ystem sho// cootolo tbe followloq feototes
(o) ose of opptoptlote bollots (b) stooJolooe mocbloe wblcb coo cooot votes ooJ
oo ootomoteJ system wblcb coo coosollJote tbe tesolts lmmeJlotely (c) with
provisions for oudit troi/s (J) mlolmom bomoo lotetveotloo ooJ (e) oJepoote
sofeqootJ/secotlty meosotes (lLallcs and emphases supplled)
ln brlef respondenLs cannoL deny LhaL Lhe provlslon requlrlng audlL Lralls ls lndeed
mandaLory conslderlng Lhe wordlng of SecLlon 7 of 8A 8436 nelLher can
8espondenL Comelec deny LhaL lL has relled on Lhe 8AC 8eporL whlch lndlcaLes LhaL
Lhe machlnes or Lhe sofLware was deflclenL ln LhaL respecL And yeL Lhe
Commlsslon slmply dlsregarded Lhls shorLcomlng and awarded Lhe ConLracL Lo
prlvaLe respondenL Lhereby vlolaLlng Lhe very law lL was supposed Lo lmplemenL
C
lnodequocy of Post locto
kemedio/ Meosures
8espondenLs argue LhaL Lhe deflclencles relaLlng Lo Lhe deLecLlon of prevlously
downloaded daLa as well as provlslons for audlL Lralls are mere shorLcomlngs or
mlnor deflclencles ln sofLware or programmlng whlch can be recLlfled erhaps
Comelec slmply relled upon Lhe 8AC 8eporL whlch sLaLes on page 8 Lhereof
LhaL #Meqo loclflc folleJ lo 8 ltems bowevet tbese ote mostly oo tbe softwote
wblcb coo be cottecteJ by teptoqtommloq x x x ooJ tbetefote coo be teoJlly
cottecteJ
1he underslgned pooeotes quesLlons some of whlch were addressed Lo
Commlssloner 8orra durlng Lhe Cral ArgumenL remaln unanswered Lo Lhls
day llrsL of all who made Lhe deLermlnaLlon LhaL Lhe elghL fall" marks of Mega
aclflc were on accounL of Lhe sofLware was lL uCS1 or 1WC? Pow can we be
sure Lhese fallures were noL Lhe resulLs of machlne defecLs? Pow was lL
deLermlned LhaL Lhe sofLware could acLually be reprogrammed and Lhereby
recLlfled? ul d a qual l f l ed Lechnl cal experL read and anal yze Lhesootce
coJe
49
for Lhe programs and conclude LhaL Lhese could be saved and
remedled? (Such deLermlnaLlon cannoL be done by any oLher means save by Lhe
examlnaLlon and analysls of Lhe source code)
Who was Lhls quallfled Lechnlcal experL? When dld he carry ouL Lhe sLudy? uld he
prepare a wrlLLen reporL on hls flndlngs? Cr dld Lhe Comelec [usL make a wlld
guess? lL does noL follow LhaL all defecLs ln sofLware programs can be recLlfled and
Lhe programs saved ln Lhe lnformaLlon Lechnology secLor lL ls common knowledge
LhaL Lhere are many badly wrlLLen programs wlLh slgnlflcanL programmlng errors
wrlLLen lnLo Lhem hence lL does noL make economlc sense Lo Lry Lo correcL Lhe
programs lnsLead programmers slmply abandon Lhem and [usL sLarL from
scraLch 1here's no Lelllng lf any of Lhese programs ls unrecLlflable unless a
quallfled programmer reads Lhe source code
And lf lndeed a quallfled experL revlewed Lhe source code dld he also deLermlne
how much work would be needed Lo recLlfy Lhe programs? And how much Llme
and money would be spenL for LhaL efforL? Who would carry ouL Lhe work? AfLer
Lhe recLlflcaLlon process who would ascerLaln and how would lL be ascerLalned LhaL
Lhe programs have lndeed been properly recLlfled and LhaL Lhey would work
properly LhereafLer? And of course Lhe mosL lmporLanL quesLlon Lo ask could Lhe
recLlflcaLlon be done ln Llme for Lhe elecLlons ln 2004?
Clearly none of Lhe respondenLs boLhered Lo Lhlnk Lhe maLLer Lhrough Comelec
slmply Look Lhe word of Lhe 8AC as gospel LruLh wlLhouL even boLherlng Lo lnqulre
from uCS1 wheLher lL was Lrue LhaL Lhe deflclencles noLed could posslbly be
remedled by reprogrammlng Lhe sofLware ApparenLly Comelec dld noL care
abouL Lhe sofLware buL focused only on purchaslng Lhe machlnes
WhaL really adds Lo Lhe CourL's dlsmay ls Lhe admlsslon made by Commlssloner
8orra durlng Lhe Cral ArgumenL LhaL Lhe sofLware currenLly belng used by Comelec
was merely Lhe demo" verslon lnasmuch as Lhe flnal verslon LhaL would acLually
be used ln Lhe elecLlons was sLlll belng developed and had noL yeL been flnallzed
113

lL ls noL clear when Lhe flnal verslon of Lhe sofLware would be ready for LesLlng and
deploymenL lL seems Lo Lhe CourL LhaL Comelec ls [usL keeplng lLs flngers crossed
and hoplng Lhe flnal producL would work ls Lhere a lan 8" ln case lL does
noL? Who knows? 8uL all Lhese sofLware programs are parL and parcel of Lhe
blddlng and Lhe ConLracL awarded Lo Lhe ConsorLlum wby ls lt tbot tbe mocbloes
ote olteoJy beloq btooqbt lo ooJ polJ fot wbeo tbete ls os yet oo woy of koowloq lf
tbe flool vetsloo of tbe softwote woolJ be oble to too tbem ptopetly os well os
coovoss ooJ coosollJote tbe tesolts lo tbe moooet tepolteJ?
1he counLlng machlnes as well as Lhe canvasslng sysLem wlll never work
properly wltboot tbe cottect softwote ptoqtoms 1here ls an old adage LhaL ls sLlll
valld Lo Lhls day Carbage ln garbage ouL" no maLLer how powerful advanced
and sophlsLlcaLed Lhe compuLers and Lhe servers are lf Lhe sofLware belng uLlllzed
ls defecLlve or has been compromlsed Lhe resulLs wlll be no beLLer Lhan
garbage And Lo Lhlnk LhaL whaL ls aL sLake here ls Lhe 2004 naLlonal elecLlons Lhe
very basls of our democraLlc llfe
orrection of uefects?
1o Lhelr Memorandum publlc respondenLs proudly appended 19 CerLlflcaLlons
lssued by uCS1 declarlng LhaL some 283 counLlng machlnes had been LesLed and
had passed Lhe accepLance LesLlng conducLed by Lhe ueparLmenL on CcLober 818
2003 Among Lhose LesLed were some machlnes LhaL had falled prevlous LesLs buL
had undergone ad[usLmenLs and Lhus passed reLesLlng
unforLunaLely Lhe CerLlflcaLlons from uCS1 fall Lo dlvulge ln whaL manner and by
whaL sLandards or crlLerla Lhe condlLlon performance and/or readlness of Lhe
machlnes were reevaluaLed and reappralsed and LhereafLer glven Lhe passlng
mark AparL from LhaL facL Lhe remedlal efforLs of respondenLs were noL
surprlslngly apparenLly focused agaln on Lhe machlnes Lhe hardware noLhlng
was sald or done abouL Lhe softwote Lhe deflclencles as Lo deLecLlon and
prevenLlon of downloadlng and enLerlng prevlously downloaded daLa as well as Lhe
capablllLy Lo prlnL an audlL Lrall No mottet bow mooy tlmes tbe mocbloes wete
testeJ ooJ tetesteJ lf ootbloq wos Jooe oboot tbe ptoqtommloq Jefects ooJ
Jeflcleocles tbe some Jooqet of mosslve electotol ftooJ temolos As anyone who
has a modlcum of knowledge of compuLers would say 1haL's elemenLary!"
And only lasL uecember 3 2003 an lnq7neL news reporL quoLed Lhe Comelec chalr
as saylng LhaL Lhe new auLomaLed poll sysLem would be used naLlonwlde ln May
2004 eveo os tbe softwote fot tbe system temoloeJ ooflolsbeJ lL also reporLed
LhaL a cerLaln 1lLus Manuel of Lhe hlllpplne CompuLer SocleLy whlch was helplng
Comelec LesL Lhe hardware and sofLware solJ tbot tbe softwote fot tbe coootloq
stlll boJ to be sobmltteJ oo uecembet 15 wblle tbe softwote fot tbe coovossloq wos
Joe lo eotly Iooooty
Lven as Comelec conLlnues maklng paymenLs for Lhe ACMs we keep asklng
ourselves who ls golng Lo ensure LhaL Lhe sofLware would be LesLed and would
work properly?
AL any raLe Lhe reLesLlng of Lhe machlnes and/or Lhe 100 percenL LesLlng of all
machlnes (LesLlng of every slngle unlL) would noL serve Lo eradlcaLe Lhe grave abuse
of dlscreLlon already commlLLed by Comelec when lL awarded Lhe ConLracL on Aprll
13 2003 desplLe Lhe obvlous and admlLLed flaws ln Lhe blddlng process Lhe fallure
of Lhe wlnnlng bldder" Lo quallfy and Lhe lnablllLy of Lhe ACMs and Lhe lnLended
sofLware Lo meeL Lhe bld requlremenLs and rules
ome/ecs Lotest
"4ssuronces" 4re
unpersuosive
Lven Lhe laLesL pleadlngs flled by Comelec do noL serve Lo allay our
apprehenslons 1hey merely afflrm and compound Lhe serlous vlolaLlons of law and
gravely abuslve acLs lL has commlLLed LeL us examlne Lhem
1he 8esoluLlon lssued by Lhls CourL on uecember 9 2003 requlred respondenLs Lo
lnform lL as Lo Lhe number of ACMs dellvered and pald for as well as Lhe LoLal
paymenL made Lo daLe for Lhe purchase Lhereof 1hey were llkewlse lnsLrucLed Lo
submlL a cerLlflcaLlon from Lhe uCS1 aLLesLlng Lo Lhe number of ACMs LesLed Lhe
number found Lo be defecLlve and#wbetbet tbe teptoqtommeJ softwote bos beeo
testeJ ooJ foooJ to bove complleJ wltb tbe tepoltemeots ooJet kepobllc Act No
84J6
30

ln lLs arLlal Compllance and ManlfesLaLlon" daLed uecember 29 2003 Comelec
lnformed Lhe CourL LhaL 1991 ACMs had already been dellvered Lo Lhe Commlsslon
as of LhaL daLe lL furLher cerLlfled LhaL lL had already pald Lhe suppller Lhe sum
of 84916769741 whlch corresponded Lo 1973 ACM unlLs LhaL had passed Lhe
accepLance LesLlng procedures conducLed by Lhe Ml8uCuCS1
31
and whlch had
Lherefore been accepLed by Lhe poll body
ln Lhe same submlsslon fot tbe vety fltst tlme Comelec also dlsclosed Lo Lhe CourL
Lhe followlng
1he AuLomaLed CounLlng and Canvasslng ro[ecL lnvolves noL only Lhe
manufacLurlng of Lhe ACM hardware buL also Lhe developmenL of Lhree (3) Lypes of
sofLware whlch are lnLended for use ln Lhe followlng
1 LvaluaLlon of 1echnlcal 8lds
2 1esLlng and AccepLance rocedures
3 LlecLlon uay use"
Purchose of the lirst @ype of
5oftwore Jithout vo/uotion
ln oLher words Lhe flrsL Lype of sofLware was Lo be developed solely for Lhe
purpose of enabllng Lhe evaluaLlon of Lhe bldder's Lechnlcal bld Comelec explalned
Lhus #lo oJJltloo to tbe pteseototloo of tbe AcM botJwote tbe blJJets wete
tepolteJ to Jevelop o bose softwote ptoqtom tbot wlll eooble tbe AcM to fooctloo
ptopetly 5loce tbe softwote ptoqtom otlllzeJ Jotloq tbe evolootloo of blJs ls oot
tbe octool softwote ptoqtom to be employeJ oo electloo Joy tbete beloq two (2)
otbet types of softwote ptoqtom tbot wlll stlll bove to be JevelopeJ ooJ tbotooqbly
114

testeJ ptlot to octool electloo Joy ose Jefects lo tbe bose softwote tbot coo be
teoJlly cottecteJ by teptoqtommloq ote cooslJeteJ mloot lo ootote ooJ moy
tbetefote be wolveJ
ln shorL Comelec clalms LhaL lL evaluaLed Lhe blds and made Lhe declslon Lo award
Lhe ConLracL Lo Lhe wlnnlng" bldder parLly on Lhe basls of Lhe operaLlon of Lhe
ACMs runnlng a base" sofLware 1haL sofLware was Lherefore noLhlng buL a sample
or demo" sofLware whlch would noL be Lhe acLual one LhaL would be used on
elecLlon day keeplng ln mlnd LhaL Lhe ConLracL lnvolves Lhe acqulslLlon of noL [usL
Lhe ACMs or Lhe hardware buL also Lhe sofLware LhaL would run Lhem lL ls now
even clearer LhaL Lhe ConLracL was awarded wlLhouL Comelec havlng seen much
less evaluaLed Lhe flool producL Lhe sofLware LhaL would flnally be uLlllzed come
elecLlon day (noL even Lhe nearflnal" producL for LhaL maLLer)
WhaL Lhen was Lhe polnL of conducLlng Lhe blddlng when Lhe sofLware LhaL was Lhe
sub[ecL of Lhe ConLracL was stlll to be cteoteJ and could concelvably undergo
lnnumerable changes before belng consldered as belng ln flnal form? And LhaL ls
noL all!
No xp/onotion for Lopses
in the 5econd @ype of 5oftwore
1he second phase allegedly lnvolvlng Lhe second Lype of sofLware ls slmply
denomlnaLed 1esLlng and AccepLance rocedures" As besL as we can consLrue
Comelec ls clalmlng LhaL Lhls second Lype of sofLware ls also to be JevelopeJ and
dellvered by Lhe suppller ln connecLlon wlLh Lhe LesLlng and accepLance" phase of
Lhe acqulslLlon process 1he prevlous pleadlngs Lhough lncludlng Lhe uCS1
reporLs submlLLed Lo Lhls CourL have noL hereLofore menLloned any sLaLemenL
allegaLlon or represenLaLlon Lo Lhe effecL LhaL a parLlcular seL of sofLware was Lo be
developed and/or dellvered by Lhe suppller ln connecLlon wlLh Lhe LesLlng and
accepLance of dellvered ACMs
WhaL Lhe records do show ls LhaL Lhe lmporLed ACMs were sub[ecLed Lo Lhe LesLlng
and accepLance process conducLed by Lhe uCS1 Slnce Lhe lnlLlal baLch dellvered
lncluded a hlgh percenLage of machlnes LhaL had falled Lhe LesLs Comelec asked Lhe
uCS1 Lo conducL a 100 percenL LesLlng LhaL ls Lo LesL every slngle one of Lhe ACMs
dellvered Among Lhe machlnes LesLed on CcLober 8 Lo 18 2003 were some unlLs
LhaL had falled prevlous LesLs buL had subsequenLly been reLesLed and had
passed 1o repeaL however unLll now Lhere has never been any menLlon of a
second seL or Lype of sofLware perLalnlng Lo Lhe LesLlng and accepLance process
ln any evenL aparL from maklng LhaL mlsplaced and uncorroboraLed clalm Comelec
ln Lhe same submlsslon also professes (ln response Lo Lhe concerns expressed by
Lhls CourL) LhaL the reprogrammed softare has been tested and found to have
comp||ed |th the requ|rements of kA 8436 lL reasoned Lhus #5loce tbe softwote
ptoqtom ls oo lobeteot elemeot lo tbe ootomoteJ coootloq system tbe cettlflcotloo
lssoeJ by tbe MlkucuO51 tbot ooe tboosooJ oloe booJteJ seveotytbtee (197J)
oolts posseJ tbe occeptooce test ptoceJotes ls oo offlclol tecoqoltloo by tbe Mlkuc
uO51 tbot tbe softwote compooeot of tbe ootomoteJ electloo system wblcb bos
beeo teptoqtommeJ to comply wltb tbe ptovlsloos of kepobllc Act No 84J6 os
ptesctlbeJ lo tbe AJ noc 1ecbolcol volootloo commlttees AcM 1estloq ooJ
Acceptooce Mooool bos posseJ tbe MlkucuO51 tests
1he facLs do noL supporL Lhls sweeplng sLaLemenL of Comelec A scruLlny of Lhe
Ml8uCuCS1 leLLer daLed uecember 13 2003
32
whlch lL relled upon does noL
[usLlfy lLs grand concluslon lor clarlLy's sake we quoLe ln full Lhe leLLer
cerLlflcaLlon as follows
13 uecember 2003
PCn 8LSu88LCClCn Z 8C88A
CommlsslonerlnCharge
hase ll ModernlzaLlon ro[ecL
Commlsslon on LlecLlons
lnLramuros Manlla
ALLenLlon ALLy !ose M 1olenLlno !r
ro[ecL ulrecLor
uear Commlssloner 8orra
We are pleased Lo submlL 11 uCS1 1esL CerLlflcaLlons represenLlng 11 loLs and
coverlng 138 unlLs of auLomaLed counLlng machlnes (ACMs) LhaL we have LesLed
from 0212 uecember 2003
1o daLe we have LesLed all Lhe 1991 unlLs of ACMs broken down as follow (slc)
1
sL
baLch 30 unlLs 4
Lh
baLch 438 unlLs
2
nd
baLch 288 unlLs 3
Lh
baLch 438 unlLs
3
rd
baLch 414 unlLs 6
Lh
baLch 383 unlLs
lL should be noLed LhaL a LoLal of 18 unlLs have falled Lhe LesL CuL of Lhese 18
unlLs only one (1) unlL has falled Lhe reLesL
1hank you and we hope you wlll flnd everyLhlng ln order
very Lruly yours
8CLAnuC 1 vlLC8lA CLSC lll
LxecuLlve ulrecLor cum
Chalrman uCS11echnlcal LvaluaLlon CommlLLee"
Lven a cursory glance aL Lhe foregolng leLLer shows LhaL lL ls compleLely berefL of
anyLhlng LhaL would remoLely supporL Comelec's conLenLlon LhaL Lhe sofLware
componenL of Lhe auLomaLed elecLlon sysLem x x x has been reprogrammed Lo
comply wlLh" 8A 8436 and has passed Lhe Ml8uCuCS1 LesLs" 1here ls no
menLlon aL all of any sofLware reprogrammlng lf Lhe Ml8uCuCS1 had lndeed
underLaken Lhe supposed reprogrammlng and Lhe process Lurned ouL Lo be
successful LhaL agency would have proudly LrumpeLed lLs slngular achlevemenL
Pow Comelec came Lo belleve LhaL such reprogrammlng had been underLaken ls
unclear ln any evenL Lhe Commlsslon ls noL forLhrlghL and candld wlLh Lhe facLual
deLalls lf reprogrammlng has been done who performed lL and when? WhaL
exacLly dld Lhe process lnvolve? Pow can we be assured LhaL lL was properly
113

performed? Slnce Lhe facLs aLLendanL Lo Lhe alleged reprogrammlng are sLlll
shrouded ln mysLery Lhe CourL cannoL glve any welghL Lo Comelec's bare
allegaLlons
1he facL LhaL a LoLal of 1973 of Lhe machlnes has ulLlmaLely passed Lhe Ml8uC
uCS1 LesLs does noL by lLself serve as an endorsemenL of Lhe soundness of Lhe
sofLware program much less as a proof LhaL lL has been reprogrammed ln Lhe flrsL
place noLhlng on record shows LhaL Lhe LesLs and reLesLs conducLed on Lhe
machlnes were lnLended Lo address Lhe serlous deflclencles noLed earller As a
maLLer of facL Lhe Ml8uCuCS1 leLLer does noL even lndlcaLe whaL klnds of LesLs or
reLesLs were conducLed Lhelr exacL naLure and scope and Lhe speclflc ob[ecLlves
Lhereof
33
1he absence of relevanL supporLlng documenLs comblned wlLh Lhe
uLLer vagueness of Lhe leLLer cerLalnly falls Lo lnsplre bellef or Lo [usLlfy Lhe
expanslve confldence dlsplayed by Comelec lo ooy eveot lt qoes wltboot soyloq
tbot temeJlol meosotes socb os tbe olleqeJ teptoqtommloq coooot lo ooy woy
mltlqote tbe qtove obose of Jlsctetloo olteoJy commltteJ os eotly os Aptll 15 200J
kotiono/e of Pub/ic 8iddinq Neqoted
by the @hird @ype of 5oftwore
8espondenL Comelec Lrles Lo assuage Lhls CourL's anxleLy ln Lhese words 1he
reprogrammed sofLware LhaL has already passed Lhe requlremenLs of 8epubllc AcL
no 8436 durlng Lhe Ml8uCuCS1 LesLlng and accepLance procedures wlll requlre
furLher cusLomlzaLlon slnce Lhe followlng addlLlonal elemenLs among oLher Lhlngs
wlll have Lo be consldered before Lhe flnal sofLware can be used on elecLlon day 1
llnal CerLlfled LlsL of CandldaLes x x x 2 ro[ecL of reclncLs x x x J Cfflclal 8alloL
ueslgn and SecurlLy leaLures x x x 4 LncrypLlon dlglLal cerLlflcaLes and dlglLal
slgnaLures x x x 1be cettlfleJ llst of cooJlJotes fot ootloool electlve posltloos wlll be
floollzeJ oo ot befote 2J Iooooty 2004 wblle tbe flool llst of ptojects of pteclocts wlll
be ptepoteJ olso oo tbe some Jote Ooce oll tbe obove elemeots ote locotpototeJ lo
tbe softwote ptoqtom tbe 1est cettlflcotloo Ctoop cteoteJ by tbe AJ noc 1ecbolcol
volootloo commlttee wlll cooJoct metlcoloos testloq of tbe flool softwote befote
tbe some coo be oseJ oo electloo Joy lo oJJltloo to tbe testloq to be cooJocteJ by
solJ 1est cettlflcotloo Ctoop tbe comelec wlll cooJoct mock electloos lo selecteJ
oteos ootloowlJe oot ooly fot potposes of pobllc lofotmotloo bot olso to fottbet test
tbe flool electloo Joy ptoqtom lobllc tespooJeot comelec tbetefote tepoests tbot
lt be qlveo op to 16 lebtooty 2004 to comply wltb tbls tepoltemeot
1he foregolng passage shows Lhe lmprudenL approach adopLed by Comelec ln Lhe
blddlng and acqulslLlon process 1he Commlsslon says LhaL before Lhe sofLware can
be uLlllzed on elecLlon day lL wlll requlre cusLomlzaLlon" Lhrough addlLlon of daLa
llke Lhe llsL of candldaLes pro[ecL of preclncLs and so on And lnasmuch as such
daLa wlll become avallable only ln !anuary 2004 anyway Lhere ls Lherefore no
percelved need on Comelec's parL Lo rush Lhe suppller lnLo produclng Lhe flnal (or
nearflnal) verslon of Lhe sofLware before LhaL Llme ln any case Comelec argues
LhaL Lhe sofLware needed for Lhe elecLoral exerclse can be conLlnuously developed
LesLed ad[usLed and perfecLed pracLlcally all Lhe way up Lo elecLlon day aL Lhe
same Llme LhaL Lhe Commlsslon ls underLaklng all Lhe oLher dlsLlncL and dlverse
acLlvlLles perLlnenL Lo Lhe elecLlons
Clven such a frame of mlnd lL ls no wonder LhaL Comelec pald llLLle aLLenLlon Lo Lhe
counLlng and canvasslng sofLware durlng Lhe enLlre blddlng process whlch Look
place ln lebruaryMarch 2003 CranLed LhaL Lhe sofLware was defecLlve could noL
deLecL and prevenL Lhe reuse of prevlously downloaded daLa or produce Lhe audlL
Lrall aslde from lLs oLher shorLcomlngs neverLheless all Lhose deflclencles could
sLlll be correcLed down Lhe road AL any raLe Lhe sofLware used for blddlng
purposes would noL be Lhe same one LhaL wlll be used on elecLlon day so why pay
any aLLenLlon Lo lLs defecLs? Cr Lo Lhe Comelec's own blddlng rules for LhaL
maLLer?
Clearly such [umbled raLloclnaLlons compleLely negaLe Lhe raLlonale underlylng Lhe
blddlng process mandaLed by law
AL Lhe very ouLseL Lhe CourL has explalned LhaL Comelec flagranLly vlolaLed Lhe
publlc pollcy on publlc blddlngs (1) by allowlng MC/MLl Lo parLlclpaLe ln Lhe
blddlng even Lhough lL was noL quallfled Lo do so and (2) by evenLually awardlng
Lhe ConLracL Lo MC/MLl now wlLh Lhe laLesL explanaLlon glven by Comelec lL ls
clear LhaL Lhe Commlsslon furLher desecraLed Lhe law on publlc blddlng by
permlLLlng Lhe wlnnlng bldder Lo change and alLer Lhe sub[ecL of Lhe ConLracL (Lhe
sofLware) ln effecL allowlng a subsLanLlve amendmenL wlLhouL publlc blddlng
1hls sLance ls conLrary Lo seLLled [urlsprudence requlrlng Lhe sLrlcL appllcaLlon of
perLlnenL rules regulaLlons and guldellnes for publlc blddlng for Lhe purpose
of plocloq eocb blJJet octool ot poteotlol oo tbe some footloq 1he essence of
publlc blddlng ls afLer all an opporLunlLy for falr compeLlLlon and a falr basls for
Lhe preclse comparlson of blds ln common parlance publlc blddlng alms Lo level
Lhe playlng fleld" 1haL means each bldder musL bld under Lhe same condlLlons
and be sub[ecL Lo Lhe same guldellnes requlremenLs and llmlLaLlons so LhaL Lhe
besL offer or lowesL bld may be deLermlned oll otbet tbloqs beloq epool
1hus lL ls conLrary Lo Lhe very concepL of publlc blddlng Lo permlL a varlance
beLween Lhe condlLlons under whlch blds are lnvlLed and Lhose under whlch
proposals are submlLLed and approved or as ln Lhls case Lhe condlLlons under
whlch Lhe bld ls won and Lhose under whlch Lhe awarded ConLracL wlll be complled
wlLh 1he subsLanLlve amendmenL of Lhe conLracL bldded ouL wlLhouL any publlc
blddlng oftet Lhe blddlng process had been concluded ls vlolaLlve of Lhe publlc
pollcy on publlc blddlngs as well as Lhe splrlL and lnLenL of 8A 8436 1be wbole
polot lo qoloq tbtooqb tbe pobllc blJJloq exetclse wos completely lost 1be vety
totlooole of pobllc blJJloq wos totolly sobvetteJ by tbe commlssloo
lrom anoLher perspecLlve Lhe Comelec approach also falls Lo make sense CranLed
LhaL before elecLlon day Lhe sofLware would sLlll have Lo be cusLomlzed Lo each
preclncL munlclpallLy clLy dlsLrlcL and so on Lhere sLlll was noLhlng aL all Lo
prevenL Comelec from requlrlng prospecLlve suppllers/bldders Lo produce ot tbe
116

vety stott of tbe blJJloq ptocessLhe nexLLoflnal" verslons of Lhe sofLware (Lhe
besL sofLware Lhe suppllers had) preLesLed and ready Lo be cusLomlzed Lo Lhe
flnal llsL of candldaLes and pro[ecL of preclncLs among oLhers and ready Lo be
deployed LhereafLer 1he saLlsfacLlon of such requlremenL would probably have
provlded far beLLer bases for evaluaLlon and selecLlon as beLween suppllers Lhan
Lhe socalled demo sofLware
8espondenLs conLend LhaL Lhe blddlng suppllers' counLlng machlnes were
prevlously used ln aL leasL one pollLlcal exerclse wlLh no less Lhan 20 mllllon
voLers lf so lL sLands Lo reason LhaL Lhe sofLware used ln LhaL pasL elecLoral
exerclse would probably sLlll be avallable and ln all llkellhood could have been
adopLed for use ln Lhls lnsLance aylng for machlnes and sofLware of LhaL caLegory
(already Lrled and proven ln acLual elecLlons and ready Lo be adopLed for use)
would deflnlLely make more sense Lhan paylng Lhe same hundreds of mllllons of
pesos for demo sofLware and empLy promlses of usable programs ln Lhe fuLure
8uL Lhere ls sLlll anoLher guLlevel reason why Lhe approach Laken by Comelec ls
reprehenslble lL rldes on Lhe perllous assumpLlon LhaL noLhlng would go wrong
and LhaL come elecLlon day Lhe Commlsslon and Lhe suppller would have
developed ad[usLed and reprogrammed" Lhe sofLware Lo Lhe polnL where Lhe
auLomaLed sysLem could funcLlon as envlsloned 8uL whaL lf such opLlmlsLlc
pro[ecLlon does noL maLerlallze? WhaL lf desplLe all Lhelr herculean efforLs Lhe
sofLware now belng hurrledly developed and LesLed for Lhe auLomaLed sysLem
performs dlsmally and lnaccuraLely or worse ls hacked and/or
manlpulaLed?
34
WhaL Lhen wlll we do wlLh all Lhe machlnes and defecLlve
sofLware olteoJy polJ fot ln Lhe amounL of 849 mllllon of our Lax money? Lven
more lmporLanL wbot wlll boppeo to oot coootty lo cose of follote of tbe
ootomotloo?
1he CourL cannoL granL Lhe plea of Comelec LhaL lL be glven unLll lebruary 16 2004
Lo be able Lo submlL a cerLlflcaLlon relaLlve Lo Lhe addlLlonal elemenLs of Lhe
sofLware LhaL wlll be cusLomlzed" because for us Lo do so would unnecessarlly
delay Lhe resoluLlon of Lhls case and would [usL glve Lhe poll body an unwarranLed
excuse Lo posLpone Lhe 2004 elecLlons Cn Lhe oLher hand because such
cerLlflcaLlon wlll noL cure Lhe gravely abuslve acLlons complalned of by peLlLloners
lL wlll be uLLerly useless
ls Lhls CourL belng overly pesslmlsLlc and perhaps even engaglng ln
speculaLlon? Pardly 8aLher Lhe CourL holds LhaL Comelec should noL have
gambled on Lhe unreallsLlc opLlmlsm LhaL Lhe suppller's sofLware developmenL
efforLs would Lurn ouL well 1he Commlsslon should have adopLed a much more
prudenL and [udlclous approach Lo ensure Lhe dellvery of Lrled and LesLed sofLware
and readled alLernaLlve courses of acLlon ln case of fallure Conslderlng LhaL Lhe
naLlon's fuLure ls aL sLake here lL should have done no less
Lp||ogue
Cnce agaln Lhe CourL flnds lLself aL Lhe crossroads of our naLlon's hlsLory AL sLake
ln Lhls conLroversy ls noL [usL Lhe buslness of a compuLer suppller or a quesLlonable
proclamaLlon by Comelec of one or more publlc offlclals nelLher ls lL abouL
wheLher Lhls counLry should swlLch from Lhe manual Lo Lhe auLomaLed sysLem of
counLlng and canvasslng voLes AL lLs core ls Lhe ablllLy and capaclLy of Lhe
Commlsslon on LlecLlons Lo perform properly legally and prudenLly lLs legal
mandaLe Lo lmplemenL Lhe LranslLlon from manual Lo auLomaLed elecLlons
unforLunaLely Comelec has falled Lo measure up Lo Lhls hlsLorlc Lask As sLaLed aL
Lhe sLarL of Lhls ueclslon Comelec has noL merely gravely abused lLs dlscreLlon ln
awardlng Lhe ConLracL for Lhe auLomaLlon of Lhe counLlng and canvasslng of Lhe
balloLs lL has also puL aL grave rlsk Lhe holdlng of credlble and peaceful elecLlons
by shoddlly accepLlng elecLronlc hardware and sofLware LhaL admlLLedly falled Lo
pass legally mandaLed Lechnlcal requlremenLs lnadequaLe as Lhey are Lhe
remedles lL proffers posL facLo do noL cure Lhe grave abuse of dlscreLlon lL already
commlLLed (1) on Aprll 13 2003 when lL lllegally made Lhe award and (2)
someLlme" ln May 2003 when lL execuLed Lhe ConLracL for Lhe purchase of
defecLlve machlnes and nonexlsLenL sofLware from a nonellglble bldder
lor Lhese reasons Lhe CourL flnds lL LoLally unaccepLable and unconsclonable Lo
place lLs lmprlmaLur on Lhls vold and lllegal LransacLlon LhaL serlously endangers Lhe
breakdown of our elecLoral sysLem lor Lhls CourL Lo copouL and Lo close lLs eyes
Lo Lhese lllegal LransacLlons whlle convenlenL would be Lo abandon lLs
consLlLuLlonal duLy of safeguardlng publlc lnLeresL
As a necessary consequence of such nulllLy and lllegallLy Lhe purchase of Lhe
machlnes and all appurLenances LhereLo lncludlng Lhe sLlllLobeproduced (or ln
Comelec's words Lo be reprogrammed") sofLware as well as all Lhe paymenLs
made Lherefor have no basls whaLsoever ln law 1he publlc funds expended
pursuanL Lo Lhe vold 8esoluLlon and ConLracL musL Lherefore be recovered from Lhe
payees and/or from Lhe persons who made posslble Lhe lllegal dlsbursemenLs
wlLhouL pre[udlce Lo posslble crlmlnal prosecuLlons agalnsL Lhem
lurLhermore Comelec and lLs offlclals concerned musL bear full responslblllLy for
Lhe falled blddlng and award and held accounLable for Lhe elecLoral mess wroughL
by Lhelr grave abuse of dlscreLlon ln Lhe performance of Lhelr funcLlons 1he SLaLe
of course ls noL bound by Lhe mlsLakes and lllegallLles of lLs agenLs and servanLs
1rue our counLry needs Lo Lranscend our slow manual and archalc elecLoral
process 8uL before lL can do so lL musL flrsL have a dlllgenL and compeLenL
elecLoral agency LhaL can properly and prudenLly lmplemenL a wellconcelved
auLomaLed elecLlon sysLem
AL boLLom before Lhe counLry can hope Lo have a speedy and fraudfree
auLomaLed elecLlon lL musL flrsL be able Lo procure Lhe proper compuLerlzed
hardware and sofLware legally based on a LransparenL and valld sysLem of publlc
blddlng As ln any democraLlc sysLem Lhe ulLlmaLe qool of auLomaLlng elecLlons
musL be achleved by a legal valld and aboveboard ptocess of acqulrlng Lhe
117

necessary Lools and skllls Lherefor 1hough Lhe hlllpplnes needs an auLomaLed
elecLoral process lL cannoL accepL [usL any sysLem shoved lnLo lLs bosom Lhrough
lmproper and lllegal meLhods As Lhe saylng goes Lhe end never [usLlfles Lhe
means enumbral conLracLlng wlll noL produce enllghLened resulLs
JLkLICkL Lhe eLlLlon ls CkAN1u 1he CourL hereby
declares Null and vOlu Comelec 8esoluLlon no 6074 awardlng Lhe conLracL for
hase ll of Lhe CALS Lo Mega aclflc ConsorLlum (MC) Also declared null and vold
ls Lhe sub[ecL ConLracL execuLed beLween Comelec and Mega aclflc eSoluLlons
(MLl)
33
Comelec ls furLher OkukuLo refraln from lmplemenLlng any oLher
conLracL or agreemenL enLered lnLo wlLh regard Lo Lhls pro[ecL
LeL a copy of Lhls ueclslon be furnlshed Lhe Cfflce of Lhe Cmbudsman whlch shall
deLermlne Lhe crlmlnal llablllLy lf any of Lhe publlc offlclals (and consplrlng prlvaLe
lndlvlduals lf any) lnvolved ln Lhe sub[ecL 8esoluLlon and ConLracL LeL Lhe Cfflce of
Lhe SollclLor Ceneral also Lake measures Lo proLecL Lhe governmenL and vlndlcaLe
publlc lnLeresL from Lhe lll effecLs of Lhe lllegal dlsbursemenLs of publlc funds made
by reason of Lhe vold 8esoluLlon and ConLracL


LIM VS LkLCU1IVL SLC
Gk No 1S144S Apr|| 11 2002

DISSLN1ING C9INICN
SL9AkA1L C9INICN
uL LLCn !8 I
1hls case lnvolves a peLlLlon for cerLlorarl and prohlblLlon as well as a peLlLlonln
lnLervenLlon praylng LhaL respondenLs be resLralned from proceedlng wlLh Lhe so
called 8allkaLan 021 and LhaL afLer due noLlce and hearlng LhaL [udgmenL be
rendered lssulng a permanenL wrlL of ln[uncLlon and/or prohlblLlon agalnsL Lhe
deploymenL of uS Lroops ln 8asllan and Mlndanao for belng lllegal and ln vlolaLlon
of Lhe ConsLlLuLlon
1he facLs are as follows
8eglnnlng !anuary of Lhls year 2002 personnel from Lhe armed forces of Lhe unlLed
SLaLes of Amerlca sLarLed arrlvlng ln Mlndanao Lo Lake parL ln con[uncLlon wlLh Lhe
hlllpplne mlllLary ln 8allkaLan 021 1hese socalled 8allkaLan exerclses are Lhe
largesL comblned Lralnlng operaLlons lnvolvlng llllplno and Amerlcan Lroops ln
Lheory Lhey are a slmulaLlon of [olnL mlllLary maneuvers pursuanL Lo Lhe MuLual
uefense 1reaLy
1
a bllaLeral defense agreemenL enLered lnLo by Lhe hlllpplnes and
Lhe unlLed SLaLes ln 1931
rlor Lo Lhe year 2002 Lhe lasL 8allkaLan was held ln 1993 1hls was due Lo Lhe
pauclLy of any formal agreemenL relaLlve Lo Lhe LreaLmenL of unlLed SLaLes
personnel vlslLlng Lhe hlllpplnes ln Lhe meanLlme Lhe respecLlve governmenLs of
Lhe Lwo counLrles agreed Lo hold [olnL exerclses on a reduced scale 1he lack of
consensus was evenLually cured when Lhe Lwo naLlons concluded Lhe vlslLlng
lorces AgreemenL (v lA) ln 1999
1he enLry of Amerlcan Lroops lnLo hlllpplne soll ls proxlmaLely rooLed ln Lhe
lnLernaLlonal anLlLerrorlsm campalgn declared by resldenL Ceorge W 8ush ln
reacLlon Lo Lhe Lraglc evenLs LhaL occurred on SepLember 11 2001 Cn LhaL day
Lhree (3) commerclal alrcrafLs were hl[acked flown and smashed lnLo Lhe Lwln
Lowers of Lhe World 1rade CenLer ln new ?ork ClLy and Lhe enLagon bulldlng ln
WashlngLon uC by LerrorlsLs wlLh alleged llnks Lo Lhe alCaeda (Lhe 8ase) a
Musllm exLremlsL organlzaLlon headed by Lhe lnfamous Csama bln Laden Cf no
comparable hlsLorlcal parallels Lhese acLs caused bllllons of dollars worLh of
desLrucLlon of properLy and lncalculable loss of hundreds of llves
Cn lebruary 1 2002 peLlLloners ArLhur u Llm and aullno Lrsando flled Lhls
peLlLlon for cerLlorarl and prohlblLlon aLLacklng Lhe consLlLuLlonallLy of Lhe [olnL
exerclse
2
1hey were [olned subsequenLly by SAnLAkAS and A81luC nC
MAnCCACAWA boLh parLyllsL organlzaLlons who flled a peLlLlonlnlnLervenLlon
on lebruary 11 2002
Llm and Lrsando flled sulL ln Lhelr capaclLles as clLlzens lawyers and Laxpayers
SAnLAkAS and A81luC on Lhe oLher hand aver LhaL cerLaln members of Lhelr
organlzaLlon are resldenLs of Zamboanga and Sulu and hence wlll be dlrecLly
affecLed by Lhe operaLlons belng conducLed ln Mlndanao 1hey llkewlse pray for a
relaxaLlon on Lhe rules relaLlve Lo locos stooJl clLlng Lhe unprecedenLed lmporLance
of Lhe lssue lnvolved
Cn lebruary 71 2002 Lhe SenaLe conducLed a hearlng on Lhe 8allkaLan exerclse
whereln vlceresldenL 1eoflsLo 1 Culngona !r who ls concurrenLly SecreLary of
lorelgn Affalrs presenLed Lhe urafL 1erms of 8eference (1C8)
3
llve days laLer he
approved Lhe 1C8 whlch we quoLe hereunder
l CLlC? LLvLL
1 1he Lxerclse shall be conslsLenL wlLh Lhe hlllpplne ConsLlLuLlon and all lLs
acLlvlLles shall be ln consonance wlLh Lhe laws of Lhe land and Lhe provlslons of Lhe
8uS vlslLlng lorces AgreemenL (vlA)
2 1he conducL of Lhls Lralnlng Lxerclse ls ln accordance wlLh perLlnenL unlLed
naLlons resoluLlons agalnsL global Lerrorlsm as undersLood by Lhe respecLlve
parLles
3 no permanenL uS baslng and supporL faclllLles shall be esLabllshed 1emporary
sLrucLures such as Lhose for Lroop bllleLlng classroom lnsLrucLlon and messlng may
be seL up for use by 8 and uS lorces durlng Lhe Lxerclse
4 1he Lxerclse shall be lmplemenLed [olnLly by 8 and uS Lxerclse CoulrecLors
under Lhe auLhorlLy of Lhe Chlef of SLaff Al ln no lnsLance wlll uS lorces operaLe
lndependenLly durlng fleld Lralnlng exerclses (l1x) Al and uS unlL Commanders
wlll reLaln command over Lhelr respecLlve forces under Lhe overall auLhorlLy of Lhe
Lxerclse CoulrecLors 8 and uS parLlclpanLs shall comply wlLh operaLlonal
lnsLrucLlons of Lhe Al durlng Lhe l1x
118

3 1he exerclse shall be conducLed and compleLed wlLhln a perlod of noL more Lhan
slx monLhs wlLh Lhe pro[ecLed parLlclpaLlon of 660 uS personnel and 3800 8
lorces 1he Chlef of SLaff Al shall dlrecL Lhe Lxerclse CoulrecLors Lo wlnd up and
LermlnaLe Lhe Lxerclse and oLher acLlvlLles wlLhln Lhe slx monLh Lxerclse perlod
6 1he Lxerclse ls a muLual counLerLerrorlsm advlslng asslsLlng and Lralnlng
Lxerclse relaLlve Lo hlllpplne efforLs agalnsL Lhe ASC and wlll be conducLed on Lhe
lsland of 8asllan lurLher advlslng asslsLlng and Lralnlng exerclses shall be
conducLed ln MalaguLay and Lhe Zamboanga area 8elaLed acLlvlLles ln Cebu wlll be
for supporL of Lhe Lxerclse
7 Cnly 160 uS lorces organlzed ln 12man Speclal lorces 1eams shall be deployed
wlLh Al fleld commanders 1he uS Leams shall remaln aL Lhe 8aLLallon
PeadquarLers and when approved Company 1acLlcal headquarLers where Lhey can
observe and assess Lhe performance of Lhe Al lorces
8 uS exerclse parLlclpanLs shall noL engage ln combaL wlLhouL pre[udlce Lo Lhelr
rlghL of selfdefense
9 1hese Lerms of 8eference are for purposes of Lhls Lxerclse only and do noL creaLe
addlLlonal legal obllgaLlons beLween Lhe uS CovernmenL and Lhe 8epubllc of Lhe
hlllpplnes
ll LxL8ClSL LLvLL
1 18AlnlnC
a 1he Lxerclse shall lnvolve Lhe conducL of muLual mlllLary asslsLlng advlslng and
Lralnlng of 8 and uS lorces wlLh Lhe prlmary ob[ecLlve of enhanclng Lhe
operaLlonal capablllLles of boLh forces Lo combaL Lerrorlsm
b AL no Llme shall uS lorces operaLe lndependenLly wlLhln 8 LerrlLory
c lllghL plans of all alrcrafL lnvolved ln Lhe exerclse wlll comply wlLh Lhe local alr
Lrafflc regulaLlons
2 AuMlnlS18A1lCn LCClS1lCS
a 8 and uS parLlclpanLs shall be glven a counLry and area brleflng aL Lhe sLarL of
Lhe Lxerclse 1hls brleflng shall acqualnL uS lorces on Lhe culLure and senslLlvlLles of
Lhe llllplnos and Lhe provlslons of Lhe vl A 1he brleflng shall also promoLe Lhe full
cooperaLlon on Lhe parL of Lhe 8 and uS parLlclpanLs for Lhe successful conducL of
Lhe Lxerclse
b 8 and uS parLlclpaLlng forces may share ln accordance wlLh Lhelr respecLlve
laws and regulaLlons ln Lhe use of Lhelr resources equlpmenL and oLher asseLs
1hey wlll use Lhelr respecLlve loglsLlcs channels
c Medlcal evaluaLlon shall be [olnLly planned and execuLed uLlllzlng 8 and uS
asseLs and resources
d Legal llalson offlcers from each respecLlve parLy shall be appolnLed by Lhe
Lxerclse ulrecLors
3 u8LlC AllAl8S
a Comblned 8uS lnformaLlon 8ureaus shall be esLabllshed aL Lhe Lxerclse
ulrecLoraLe ln Zamboanga ClLy and aL CPC Al ln Camp Agulnaldo Cuezon ClLy
b Local medla relaLlons wlll be Lhe concern of Lhe Al and all publlc affalrs
guldellnes shall be [olnLly developed by 8 and uS lorces
c SocloLconomlc AsslsLance ro[ecLs shall be planned and execuLed [olnLly by 8
and uS lorces ln accordance wlLh Lhelr respecLlve laws and regulaLlons and ln
consulLaLlon wlLh communlLy and local governmenL offlclals
ConLemporaneously AsslsLanL SecreLary for Amerlcan Affalrs Mlnerva !ean A
lalcon and unlLed SLaLes cbotqe J Affoltes 8oberL llLLs slgned Lhe Agreed MlnuLes
of Lhe dlscusslon beLween Lhe vlceresldenL and AsslsLanL SecreLary kelly
4

eLlLloners Llm and Lrsando presenL Lhe followlng argumenLs
l
1PL PlLllnLS Anu 1PL unl1Lu S1A1LS SlCnLu 1PL Mu1uAL uLlLnSL 18LA1?
(Mu1) ln 1931 1C 8CvluL Mu1uAL MlLl1A8? ASSlS1 AnCL ln ACCC8uAnCL Wl1P
1PL CCnS1l1u1lCnAL 8CCLSSLS Cl LACP CCun18? CnL? ln 1PL CASL Cl An
A8MLu A11ACk 8? An Lx1L8nAL ACC8LSSC8 MLAnlnC A 1Pl8u CCun18?
ACAlnS1 CnL Cl 1PLM
8? nC S18L1CP Cl 1PL lMAClnA 1lCn CAn l1 8L SAlu 1PA1 1PL A8u SA??Al
8Anul1S ln 8ASlLAn CCnS1l1u1L An Lx1L8nAL A8MLu lC8CL 1PA1 PAS Su8!LC1
1PL PlLllnLS 1C An A8MLu Lx1L8nAL A11ACk 1C WA88An1 uS MlLl1A8?
ASSlS1AnCL unuL8 1PL Mu1 Cl 1931
ll
nLl1PL8 uCLS 1PL vlA Cl 1999 Au1PC8lZL AML8lCAn SCLulL8S 1C LnCACL ln
CCM8A1 CL8A1lCnS ln PlLllnL 1L88l1C8? nC1 LvLn 1C ll8L 8ACk ll ll8Lu
uCn
SubsLanLlally Lhe same polnLs are advanced by peLlLloners SAnLAkAS and A81luC
ln hls CommenL Lhe SollclLor Ceneral polnLs Lo lnflrmlLles ln Lhe peLlLlons
regardlng lotet ollo Llm and Lrsandos sLandlng Lo flle sulL Lhe premaLurlLy of Lhe
acLlon as well as Lhe lmproprleLy of avalllng of cettlototl Lo ascerLaln a quesLlon of
facL AnenL Lhelr locos stooJl Lhe SollclLor Ceneral argues LhaL fltst Lhey may noL
flle sulL ln Lhelr capaclLles as Laxpayers lnasmuch as lL has noL been shown LhaL
8allkaLan 021 lnvolves Lhe exerclse of Congress Laxlng or spendlng
powers 5ecooJ Lhelr belng lawyers does noL lnvesL Lhem wlLh sufflclenL
personallLy Lo lnlLlaLe Lhe case clLlng our rullng ln loteqtoteJ 8ot of tbe lblllpploes
v 2omoto
3
1hlrd Llm and Lrsando have falled Lo demonsLraLe Lhe requlslLe
showlng of dlrecL personal ln[ury We agree
lL ls also conLended LhaL Lhe peLlLloners are lndulglng ln speculaLlon 1he SollclLor
Ceneral ls of Lhe vlew LhaL slnce Lhe 1erms of 8eference are clear as Lo Lhe exLenL
and duraLlon of 8allkaLan 021 Lhe lssues ralsed by peLlLloners are premaLure as
Lhey are based only on a fear of fotote vlolaLlon of Lhe 1erms of 8eference Lven
peLlLloners resorL Lo a speclal clvll acLlon for cerLlorarl ls assalled on Lhe ground
LhaL Lhe wrlL may only lssue on Lhe basls of esLabllshed facLs
AparL from Lhese Lhreshold lssues Lhe SollclLor Ceneral clalms LhaL Lhere ls acLually
no quesLlon of consLlLuLlonallLy lnvolved 1he Lrue ob[ecL of Lhe lnsLanL sulL lL ls
119

sald ls Lo obLaln an lnLerpreLaLlon of Lhe v lA 1he SollclLor Ceneral asks LhaL we
accord due deference Lo Lhe execuLlve deLermlnaLlon LhaL 8allkaLan 021 ls
covered by Lhe vlA conslderlng Lhe resldenLs monopoly ln Lhe fleld of forelgn
relaLlons and her role as commanderlnchlef of Lhe hlllpplne armed forces
Clven Lhe prlmordlal lmporLance of Lhe lssue lnvolved lL wlll sufflce Lo relLeraLe our
vlew on Lhls polnL ln a relaLed case
noLwlLhsLandlng ln vlew of Lhe paramounL lmporLance and Lhe consLlLuLlonal
slgnlflcance of Lhe lssues ralsed ln Lhe peLlLlons Lhls CourL ln Lhe exerclse of lLs
sound dlscreLlon brushes aslde Lhe procedural barrler and Lakes cognlzance of Lhe
peLlLlons as we have done ln Lhe eotly metqeocy lowets coses where we had
occaslon Lo rule
x x x ordlnary clLlzens and Laxpayers were allowed Lo quesLlon Lhe consLlLuLlonallLy
of several execuLlve orders lssued by resldenL Culrlno alLhough Lhey were
lnvolvlng only an lndlrecL and general lnLeresL shared ln common wlLh Lhe publlc
1he CourL dlsmlssed Lhe ob[ecLlon LhaL Lhey were noL proper parLles and ruled
LhaL LranscendenLal lmporLance Lo Lhe publlc of Lhese cases demands LhaL Lhey be
seLLled prompLly and deflnlLely brushlng aslde lf we musL LechnlcallLles of
procedure We have slnce Lhen applled Lhe excepLlon ln many oLher cases clLaLlon
omlLLed
1hls prlnclple was relLeraLed ln Lhe subsequenL cases of Conzales vs CCMLLLC
uaza vs Slngson and 8asco vs hll AmusemenL and Camlng CorporaLlon where
we emphaLlcally held
Conslderlng however Lhe lmporLance Lo Lhe publlc of Lhe case aL bar and ln keeplng
wlLh Lhe CourLs duLy under Lhe 1987 ConsLlLuLlon Lo deLermlne wheLher or noL
Lhe oLher branches of Lhe governmenL have kepL Lhemselves wlLhln Lhe llmlLs of Lhe
ConsLlLuLlon and Lhe laws LhaL Lhey have noL abused Lhe dlscreLlon glven Lo Lhem
Lhe CourL has brushed aslde LechnlcallLles of procedure and has Laken cognlzance of
Lhls peLlLlon xxx
Agaln ln Lhe more recenL case of kllosbayan vs Culngona !r Lhls CourL ruled LhaL
ln cases of LranscendenLal lmporLance Lhe CourL may relax Lhe sLandlng
requlremenLs and allow a sulL Lo prosper even where Lhere ls no dlrecL ln[ury Lo Lhe
parLy clalmlng Lhe rlghL of [udlclal revlew
AlLhough courLs generally avold havlng Lo declde a consLlLuLlonal quesLlon based on
Lhe docLrlne of separaLlon of powers whlch en[olns upon Lhe deparLmenL of Lhe
governmenL a becomlng respecL for each oLhers acL Lhls CourL neverLheless
resolves Lo Lake cognlzance of Lhe lnsLanL peLlLlon
6

Pence we LreaL wlLh slmllar dlspaLch Lhe general ob[ecLlon Lo Lhe supposed
premaLurlLy of Lhe acLlon AL any raLe peLlLloners concerns on Lhe lack of any
speclflc regulaLlon on Lhe laLlLude of acLlvlLy uS personnel may underLake and Lhe
duraLlon of Lhelr sLay has been addressed ln Lhe 1erms of 8eference
1he holdlng of 8allkaLan 021 musL be sLudled ln Lhe framework of Lhe LreaLy
anLecedenLs Lo whlch Lhe hlllpplnes bound lLself 1he flrsL of Lhese ls Lhe MuLual
uefense 1reaLy (Mu1 for brevlLy) 1he Mu1 has been descrlbed as Lhe core of Lhe
defense relaLlonshlp beLween Lhe hlllpplnes and lLs LradlLlonal ally Lhe unlLed
SLaLes lLs alm ls Lo enhance Lhe sLraLeglc and Lechnologlcal capablllLles of our
armed forces Lhrough [olnL Lralnlng wlLh lLs Amerlcan counLerparLs Lhe 8allkaLan
ls Lhe largesL such Lralnlng exerclse dlrecLly supporLlng Lhe Mu1s ob[ecLlves lL ls
Lhls LreaLy Lo whlch Lhe v lA adverLs and Lhe obllgaLlons Lhereunder whlch lL seeks
Lo reafflrm
1he lapse of Lhe uShlllpplne 8ases AgreemenL ln 1992 and Lhe declslon noL Lo
renew lL creaLed a vacuum ln uShlllpplne defense relaLlons LhaL ls unLll lL was
replaced by Lhe vlslLlng lorces AgreemenL lL should be recalled LhaL on CcLober 10
2000 by a voLe of eleven Lo Lhree Lhls CourL upheld Lhe valldlLy of Lhe vlA
7
1he v
lA provldes Lhe regulaLory mechanlsm by whlch unlLed SLaLes mlllLary and
clvlllan personnel may vlslL Lemporarlly ln Lhe hlllpplnes ln connecLlon wlLh
acLlvlLles approved by Lhe hlllpplne CovernmenL lL conLalns provlslons relaLlve Lo
enLry and deparLure of Amerlcan personnel drlvlng and vehlcle reglsLraLlon
crlmlnal [urlsdlcLlon clalms lmporLaLlon and exporLaLlon movemenL of vessels and
alrcrafL as well as Lhe duraLlon of Lhe agreemenL and lLs LermlnaLlon lL ls Lhe vlA
whlch glves conLlnued relevance Lo Lhe Mu1 desplLe Lhe passage of years lLs
prlmary goal ls Lo faclllLaLe Lhe promoLlon of opLlmal cooperaLlon beLween
Amerlcan and hlllpplne mlllLary forces ln Lhe evenL of an aLLack by a common foe
1he flrsL quesLlon LhaL should be addressed ls wheLher 8allkaLan 021 ls covered
by Lhe vlslLlng lorces AgreemenL 1o resolve Lhls lL ls necessary Lo refer Lo Lhe v lA
lLself noL much help can be had Lherefrom unforLunaLely slnce Lhe Lermlnology
employed ls lLself Lhe source of Lhe problem 1he vlA permlLs unlLed SLaLes
personnel Lo engage on an lmpermanenL basls ln acLlvlLles Lhe exacL meanlng of
whlch was lefL undeflned 1he expresslon ls amblguous permlLLlng a wlde scope of
underLaklngs sub[ecL only Lo Lhe approval of Lhe hlllpplne governmenL
8
1he sole
encumbrance placed on lLs deflnlLlon ls couched ln Lhe negaLlve ln LhaL unlLed
SLaLes personnel musL absLaln from any acLlvlLy locooslsteot wltb tbe spltlt of tbls
oqteemeot ooJ lo pottlcolot ftom ooy polltlcol octlvlty
9
All oLher acLlvlLles ln
oLher words are falr game
We are noL lefL compleLely unalded however 1he vlenna ConvenLlon on Lhe Law of
1reaLles whlch conLalns provlsos governlng lnLerpreLaLlons of lnLernaLlonal
agreemenLs sLaLe
SLC1lCn 3 ln1L88L1A1lCn Cl 18LA1lLS
Attlcle J1
Ceoetol tole of lotetptetotloo
1 A LreaLy shall be lnLerpreLed ln good falLh lll accordance wlLh Lhe ordlnary
meanlng Lo be glven Lo Lhe Lenus of Lhe LreaLy ln Lhelr conLexL and ln Lhe llghL of lLs
ob[ecL and purpose
2 1he conLexL for Lhe purpose of Lhe lnLerpreLaLlon of a LreaLy shall comprlse ln
addlLlon Lo Lhe LexL lncludlng lLs preamble and annexes
120

(a) any agreemenL relaLlng Lo Lhe LreaLy whlch was made beLween all Lhe parLles ln
connexlon wlLh Lhe concluslon of Lhe LreaLy
(b) any lnsLrumenL whlch was made by one or more parLles ln connexlon wlLh Lhe
concluslon of Lhe LreaLy and accepLed by Lhe oLher parLles as an lnsLrumenL relaLed
Lo Lhe parLy
3 1here shall be Laken lnLo accounL LogeLher wlLh Lhe conLexL
(a) any subsequenL agreemenL beLween Lhe parLles regardlng Lhe lnLerpreLaLlon of
Lhe LreaLy or Lhe appllcaLlon of lLs provlslons
(b) any subsequenL pracLlce ln Lhe appllcaLlon of Lhe LreaLy whlch esLabllshes Lhe
agreemenL of Lhe parLles regardlng lLs lnLerpreLaLlon
(c) any relevanL rules of lnLernaLlonal law appllcable ln Lhe relaLlons beLween Lhe
parLles
4 A speclal meanlng shall be glven Lo a Lerm lf lL ls esLabllshed LhaL Lhe parLles so
lnLended
Attlcle 32
5opplemeototy meoos of lotetptetotloo
8ecourse may be had Lo supplemenLary means of lnLerpreLaLlon lncludlng Lhe
preparaLory work of Lhe LreaLy and Lhe clrcumsLances of lLs concluslon ln order Lo
conflrm Lhe meanlng resulLlng from Lhe appllcaLlon of arLlcle 31 or Lo deLermlne
Lhe meanlng when Lhe lnLerpreLaLlon accordlng Lo arLlcle 31
(a) leaves Lhe meanlng amblguous or obscure or
(b) leads Lo a resulL whlch ls manlfesLly absurd unreasonable
lL ls clear from Lhe foregolng LhaL Lhe cardlnal rule of lnLerpreLaLlon musL lnvolve an
examlnaLlon of Lhe LexL whlch ls presumed Lo verballze Lhe parLles lnLenLlons 1he
ConvenLlon llkewlse dlcLaLes whaL may be used as alds Lo deduce Lhe meanlng of
Lerms whlch lL refers Lo as Lhe conLexL of Lhe LreaLy as well as oLher elemenLs may
be Laken lnLo accounL alongslde Lhe aforesald conLexL As explalned by a wrlLer on
Lhe ConvenLlon
Lhe Commlsslons proposals (whlch were adopLed vlrLually wlLhouL change by Lhe
conference and are now reflecLed ln ArLlcles 31 and 32 of Lhe ConvenLlon) were
clearly based on Lhe vlew LhaL Lhe LexL of a LreaLy musL be presumed Lo be Lhe
auLhenLlc expresslon of Lhe lnLenLlons of Lhe parLles Lhe Commlsslon accordlngly
came down flrmly ln favour of Lhe vlew LhaL Lhe sLarLlng polnL of lnLerpreLaLlon ls
Lhe elucldaLlon of Lhe meanlng of Lhe LexL noL an lnvesLlgaLlon ob loltlo lnLo Lhe
lnLenLlons of Lhe parLles 1hls ls noL Lo say LhaL Lhe ttovooxptepototoltes of a LreaLy
or Lhe clrcumsLances of lLs concluslon are relegaLed Lo a subordlnaLe and wholly
lneffecLlve role As rofessor 8rlggs polnLs ouL no rlgld Lemporal prohlblLlon on
resorL Lo ttovoox ptepototoltes of a LreaLy was lnLended by Lhe use of Lhe phrase
supplemenLary means of lnLerpreLaLlon ln whaL ls now ArLlcle 32 of Lhe vlenna
ConvenLlon 1he dlsLlncLlon beLween Lhe general rule of lnLerpreLaLlon and Lhe
supplemenLary means of lnLerpreLaLlon ls lnLended raLher Lo ensure LhaL Lhe
supplemenLary means do noL consLlLuLe an alLernaLlve auLonomous meLhod of
lnLerpreLaLlon dlvorced from Lhe general rule
10

1he 1erms of 8eference rlghLly fall wlLhln Lhe conLexL of Lhe vlA
AfLer sLudled reflecLlon lL appeared farfeLched LhaL Lhe amblgulLy surroundlng Lhe
meanlng of Lhe word acLlvlLles arose from accldenL ln our vlew lL was
dellberaLely made LhaL way Lo glve boLh parLles a cerLaln leeway ln negoLlaLlon ln
Lhls manner vlslLlng uS forces may so[ourn ln hlllpplne LerrlLory for purposes
oLher Lhan mlllLary As concelved Lhe [olnL exerclses may lnclude Lralnlng on new
Lechnlques of paLrol and survelllance Lo proLecL Lhe naLlons marlne resources sea
searchandrescue operaLlons Lo asslsL vessels ln dlsLress dlsasLer rellef operaLlons
clvlc acLlon pro[ecLs such as Lhe bulldlng of school houses medlcal and
humanlLarlan mlsslons and Lhe llke
under Lhese ausplces Lhe vlA glves leglLlmacy Lo Lhe currenL 8allkaLan exerclses lL
ls only loglcal Lo assume LhaL 8allkaLan 021 a muLual anLl Lerrorlsm advlslng
asslsLlng and Lralnlng exerclse falls under Lhe umbrella of sancLloned or allowable
acLlvlLles ln Lhe conLexL of Lhe agreemenL 8oLh Lhe hlsLory and lnLenL of Lhe MuLual
uefense 1reaLy and Lhe v lA supporL Lhe concluslon LhaL combotteloteJ acLlvlLles
as opposed Lo combot lLself such as Lhe one sub[ecL of Lhe lnsLanL peLlLlon are
lndeed auLhorlzed
1haL ls noL Lhe end of Lhe maLLer Lhough CranLed LhaL 8allkaLan 021 ls
permlLLed under Lhe Lerms of Lhe vlA whaL may uS forces leglLlmaLely do ln
furLherance of Lhelr alm Lo provlde advlce asslsLance and Lralnlng ln Lhe global
efforL agalnsL Lerrorlsm? ulfferenLly phrased may Amerlcan Lroops acLually engage
ln combaL ln hlllpplne LerrlLory? 1he 1erms of 8eference are expllclL enough
aragraph 8 of secLlon l sLlpulaLes LhaL uS exerclse parLlclpanLs may oot engage
ln combaL except lo selfJefeose We wryly noLe LhaL Lhls senLlmenL ls admlrable
ln Lhe absLracL buL dlfflculL ln lmplemenLaLlon 1he LargeL of 8allkaLan 021 l Lhe
Abu Sayyaf cannoL reasonably be expecLed Lo slL ldly whlle Lhe baLLle ls broughL Lo
Lhelr very doorsLep 1hey cannoL be expecLed Lo plck and choose Lhelr LargeLs for
Lhey wlll noL have Lhe luxury of dolng so We sLaLe Lhls polnL lf only Lo slgnlfy our
awareness LhaL Lhe parLles sLraddle a flne llne observlng Lhe honored legal
maxlm Nemo potest focete pet ollom pooJ ooo potest focete pet Jltectom
11
1he
lndlrecL vlolaLlon ls acLually peLlLloners worry LhaL ln reallLy 8allkaLan 021 ls
acLually a war prlnclpally conducLed by Lhe unlLed SLaLes governmenL and LhaL Lhe
provlslon on selfdefense serves only as camouflage Lo conceal Lhe Lrue naLure of
Lhe exerclse A clear pronouncemenL on Lhls maLLer Lhereby becomes cruclal
ln our consldered oplnlon nelLher Lhe Mu1 nor Lhe v lA allow forelgn Lroops Lo
engage ln an offenslve war on hlllpplne LerrlLory We bear ln mlnd Lhe saluLary
proscrlpLlon sLaLed ln Lhe CharLer of Lhe unlLed naLlons Lo wlL
ArLlcle 2
1he CrganlzaLlon and lLs Members ln pursulL of Lhe urposes sLaLed ln ArLlcle 1
shall acL ln accordance wlLh Lhe followlng rlnclples
121

xxx xxx xxx xxx
4 All Members shall refraln ln Lhelr lnLernaLlonal relaLlons from Lhe LhreaL or use of
force agalnsL Lhe LerrlLorlal lnLegrlLy or pollLlcal lndependence of any sLaLe or ln any
oLher manner lnconslsLenL wlLh Lhe urposes of Lhe unlLed naLlons
xxx xxx xxx xxx
ln Lhe same manner boLh Lhe MuLual uefense 1reaLy and Lhe vlslLlng lorces
AgreemenL as ln all oLher LreaLles and lnLernaLlonal agreemenLs Lo whlch Lhe
hlllpplnes ls a parLy musL be read ln Lhe conLexL of Lhe 1987 ConsLlLuLlon ln
parLlcular Lhe MuLual uefense 1reaLy was concluded way before Lhe presenL
CharLer Lhough lL neverLheless remalns ln effecL as a valld source of lnLernaLlonal
obllgaLlon 1he presenL ConsLlLuLlon conLalns key provlslons useful ln deLermlnlng
Lhe exLenL Lo whlch forelgn mlllLary Lroops are allowed ln hlllpplne LerrlLory 1hus
ln Lhe ueclaraLlon of rlnclples and SLaLe ollcles lL ls provlded LhaL
xxx xxx xxx xxx
SLC 2 1he hlllpplnes renounces war as an lnsLrumenL of naLlonal pollcy adopLs
Lhe generally accepLed prlnclples of lnLernaLlonal law as parL of Lhe law of Lhe land
and adheres Lo Lhe pollcy of peace equallLy [usLlce freedom cooperaLlon and
amlLy wlLh all naLlons
xxx xxx xxx xxx
SLC 7 1he SLaLe shall pursue an lndependenL forelgn pollcy ln lLs relaLlons wlLh
oLher sLaLes Lhe paramounL conslderaLlon shall be naLlonal soverelgnLy LerrlLorlal
lnLegrlLy naLlonal lnLeresL and Lhe rlghL Lo self deLermlnaLlon
SLC 8 1he hlllpplnes conslsLenL wlLh Lhe naLlonal lnLeresL adopLs and pursues a
pollcy of freedom from nuclear weapons ln Lhe counLry
xxx xxx xxx xxx
1he ConsLlLuLlon also regulaLes Lhe forelgn relaLlons powers of Lhe Chlef LxecuLlve
when lL provldes LhaL no LreaLy or lnLernaLlonal agreemenL shall be valld and
effecLlve unless concurred ln by aL leasL LwoLhlrds of all Lhe members of Lhe
SenaLe
12
Lven more polnLedly Lhe 1ranslLory rovlslons sLaLe
Sec 23 AfLer Lhe explraLlon ln 1991 of Lhe AgreemenL beLween Lhe 8epubllc of Lhe
hlllpplnes and Lhe unlLed SLaLes of Amerlca concernlng MlllLary 8ases forelgn
mlllLary bases Lroops or faclllLles shall noL be allowed ln Lhe hlllpplnes excepL
under a LreaLy duly concurred ln by Lhe SenaLe and when Lhe Congress so requlres
raLlfled by a ma[orlLy of Lhe voLes casL by Lhe people ln a naLlonal referendum held
for LhaL purpose and recognlzed as a LreaLy by Lhe oLher conLracLlng sLaLe
1he aforequoLed provlslons beLray a marked anLlpaLhy Lowards forelgn mlllLary
presence ln Lhe counLry or of forelgn lnfluence ln general Pence forelgn Lroops
are allowed enLry lnLo Lhe hlllpplnes only by way of dlrecL excepLlon ConfllcL
arlses Lhen beLween Lhe fundamenLal law and our obllgaLlons arlslng from
lnLernaLlonal agreemenLs
A raLher recenL formulaLlon of Lhe relaLlon of lnLernaLlonal law vlsovls munlclpal
law was expressed ln lblllp Mottls loc v coott of Appeols
13
Lo wlL
xxx WlLhal Lhe facL LhaL lnLernaLlonal law has been made parL of Lhe law of Lhe land
does noL by any means lmply Lhe prlmacy of lnLernaLlonal law over naLlonal law ln
Lhe munlclpal sphere under Lhe docLrlne of lncorporaLlon as applled ln mosL
counLrles rules of lnLernaLlonal law are glven a sLandlng equal noL superlor Lo
naLlonal leglslaLlon
1hls ls noL exacLly helpful ln solvlng Lhe problem aL hand slnce ln Lrylng Lo flnd a
mlddle ground lL favors nelLher one law nor Lhe oLher whlch only leaves Lhe
hapless seeker wlLh an unsolved dllemma CLher more LradlLlonal approaches may
offer valuable lnslghLs
lrom Lhe perspecLlve of publlc lnLernaLlonal law a LreaLy ls favored over munlclpal
law pursuanL Lo Lhe prlnclple ofpocto soot setvooJo Pence every LreaLy ln force
ls blndlng upon Lhe parLles Lo lL and musL be performed by Lhem ln good
falLh
14
lurLher a parLy Lo a LreaLy ls noL allowed Lo lnvoke Lhe provlslons of lLs
lnLernal law as [usLlflcaLlon for lLs fallure Lo perform a LreaLy
13

Cur ConsLlLuLlon espouses Lhe opposlng vlew WlLness our [urlsdlcLlon as l sLaLed ln
secLlon 3 of ArLlcle vlll
1he Supreme CourL shall have Lhe followlng powers
xxx xxx xxx xxx
(2) 8evlew revlse reverse modlfy or afflrm on appeal or cettlototl as Lhe law or
Lhe 8ules of CourL may provlde flnal [udgmenLs and order of lower courLs ln
(A) All cases ln whlch Lhe coostltotlooollty ot vollJlty of ooy tteoty lotetootloool ot
execotlve oqteemeot law presldenLlal decree proclamaLlon order lnsLrucLlon
ordlnance or regulaLlon ls ln quesLlon
xxx xxx xxx xxx
ln lcbooq v netoooJez
16
we ruled LhaL Lhe provlslons of a LreaLy are always sub[ecL
Lo quallflcaLlon or amendmenL by a subsequenL law or LhaL lL ls sub[ecL Lo Lhe
pollce power of Lhe SLaLe ln Coozoles v necbooovo
17

xxx As regards Lhe quesLlon wheLher an lnLernaLlonal agreemenL may be lnvalldaLed
by our courLs sufflce lL Lo say LhaL Lhe ConsLlLuLlon of Lhe hlllpplnes has clearly
seLLled lL ln Lhe afflrmaLlve by provldlng ln SecLlon 2 of ArLlcle vlll Lhereof LhaL Lhe
Supreme CourL may noL be deprlved of lLs [urlsdlcLlon Lo revlew revlse reverse
modlfy or afflrm on appeal cerLlorarl or wrlL of error as Lhe law or Lhe rules of
courL may provlde flnal [udgmenLs and decrees of lnferlor courLs ln ( l) All cases ln
whlch Lhe coostltotlooollty or vollJlty of anytteoty law ordlnance or execuLlve
order or regulaLlon ls ln quesLlon ln oLher words our ConsLlLuLlon auLhorlzes Lhe
nulllflcaLlon of a LreaLy noL only when lL confllcLs wlLh Lhe fundamenLal law bot
olso wbeo lt toos coootet to oo oct of cooqtess
1he foregolng premlses leave us no doubL LhaL uS forces are prohlblLed / from
engaglng ln an offenslve war on hlllpplne LerrlLory
?eL a nagglng quesLlon remalns are Amerlcan Lroops acLlvely engaged ln combaL
alongslde llllplno soldlers under Lhe gulse of an alleged Lralnlng and asslsLance
exerclse? ConLrary Lo whaL peLlLloners would have us do we cannoL Lake [udlclal
122

noLlce of Lhe evenLs Lransplrlng down souLh18 as reporLed from Lhe saLuraLlon
coverage of Lhe medla As a rule we do noL Lake cognlzance of newspaper or
elecLronlc reporLs pet se noL because of any lssue as Lo Lhelr LruLh accuracy or
lmparLlallLy buL for Lhe slmple reason LhaL facLs musL be esLabllshed ln accordance
wlLh Lhe rules of evldence As a resulL we cannoL accepL ln Lhe absence of concreLe
proof peLlLloners allegaLlon LhaL Lhe Arroyo governmenL ls engaged ln
doublespeak ln Lrylng Lo pass off as a mere Lralnlng exerclse an offenslve efforL by
forelgn Lroops on naLlve soll 1he peLlLlons lnvlLe us Lo speculaLe on wbot ls really
happenlng ln Mlndanao Lo lssue l make facLual flndlngs on maLLers well beyond our
lmmedlaLe percepLlon and Lhls we are undersLandably loaLh Lo do
lL ls all Loo apparenL LhaL Lhe deLermlnaLlon Lhereof lnvolves baslcally a poestloo of
foct Cn Lhls polnL we musL concur wlLh Lhe SollclLor Ceneral LhaL Lhe presenL
sub[ecL maLLer ls noL a flL Loplc for a speclal clvll acLlon forcettlototl We have held
ln Loo many lnsLances LhaL quesLlons of facL are noL enLerLalned ln such a remedy
1he sole ob[ecL of Lhe wrlL ls Lo correcL errors of [urlsdlcLlon or grave abuse of
dlscreLlon 1he phrase grave abuse of dlscreLlon has a preclse meanlng ln law
denoLlng abuse of dlscreLlon Loo paLenL and gross as Lo amounL Lo an evaslon of a
poslLlve duLy or a vlrLual refusal Lo perform Lhe duLy en[olned or acL ln
conLemplaLlon of law or where Lhe power ls exerclsed ln an arblLrary and despoLlc
manner by reason of passlon and personal hosLlllLy
19

ln Lhls connecLlon lL wlll noL be amlss Lo add LhaL Lhe Supreme CourL ls noL a Lrler
of facLs
20

under Lhe expanded concepL of [udlclal power under Lhe ConsLlLuLlon courLs are
charged wlLh Lhe duLy Lo deLermlne wheLher or noL Lhere has been a grave abuse
of dlscreLlon amounLlng Lo lack or excess of [urlsdlcLlon on Lhe parL of any branch or
lnsLrumenLallLy of Lhe governmenL
21
lrom Lhe facLs obLalnlng we flnd LhaL Lhe
holdlng of 8allkaLan 021 [olnL mlllLary exerclse has noL lnLruded lnLo LhaL
penumbra of error LhaL would oLherwlse call for correcLlon on our parL ln oLher
words respondenLs ln Lhe case aL bar have noL commlLLed grave abuse of dlscreLlon
amounLlng Lo lack or excess of [urlsdlcLlon
WPL8LlC8L Lhe peLlLlon and Lhe peLlLlonlnlnLervenLlon are
hereby ulSMlSSLu wlLhouL pre[udlce Lo Lhe flllng of a new peLlLlon sufflclenL ln
form and subsLance ln Lhe proper 8eglonal 1rlal CourL


kILCS8AAN VS GUINGCNA
Gk No 11337S May S 1994


uAvluL !8 I
1hls ls a speclal clvll acLlon for prohlblLlon and ln[uncLlon wlLh a prayer for a
Lemporary resLralnlng order and prellmlnary ln[uncLlon whlch seeks Lo prohlblL and
resLraln Lhe lmplemenLaLlon of Lhe ConLracL of Lease execuLed by Lhe hlllpplne
CharlLy SweepsLakes Cfflce (CSC) and Lhe hlllpplne Camlng ManagemenL
CorporaLlon (CMC) ln connecLlon wlLh Lhe on llne loLLery sysLem also known as
loLLo
eLlLloner kllosbayan lncorporaLed (klLCS8A?An) avers LhaL lL ls a nonsLock
domesLlc corporaLlon composed of clvlcsplrlLed clLlzens pasLors prlesLs nuns and
lay leaders who are commlLLed Lo Lhe cause of LruLh [usLlce and naLlonal renewal
1he resL of Lhe peLlLloners excepL SenaLors lreddle Webb and WlgberLo 1anada
and 8epresenLaLlve !oker Arroyo are sulng ln Lhelr capaclLles as members of Lhe
8oard of 1rusLees of klLCS8A?An and as Laxpayers and concerned clLlzens
SenaLors Webb and 1anada and 8epresenLaLlve Arroyo are sulng ln Lhelr capaclLles
as members of Congress and as Laxpayers and concerned clLlzens of Lhe hlllpplnes
1he pleadlngs of Lhe parLles dlsclose Lhe facLual anLecedenLs whlch Lrlggered off Lhe
flllng of Lhls peLlLlon
ursuanL Lo SecLlon 1 of Lhe charLer of Lhe CSC (8A no 1169 as amended by 8
8lg 42) whlch granLs lL Lhe auLhorlLy Lo hold and conducL charlLy sweepsLakes
races loLLerles and oLher slmllar acLlvlLles Lhe CSC declded Lo esLabllsh an on
llne loLLery sysLem for Lhe purpose of lncreaslng lLs revenue base and dlverslfylng lLs
sources of funds SomeLlme before March 1993 afLer learnlng LhaL Lhe CSC was
lnLeresLed ln operaLlng an onllne loLLery sysLem Lhe 8er[aya Croup 8erhad a
mulLlnaLlonal company and one of Lhe Len largesL publlc companles ln Malaysla
long engaged ln among oLhers successful loLLery operaLlons ln Asla runnlng boLh
LoLLo and ulglL games Lhru lLs subsldlary SporLs 1oLo Malaysla wlLh lLs afflllaLe
Lhe lnLernaLlonal 1oLallzaLor SysLems lnc an Amerlcan publlc company
engaged ln Lhe lnLernaLlonal sale or provlslon of compuLer sysLems sofLwares
Lermlnals Lralnlng and oLher Lechnlcal servlces Lo Lhe gamlng lndusLry became
lnLeresLed Lo offer lLs servlces and resources Lo CSC As an lnlLlal sLep 8er[aya
Croup 8erhad (Lhrough lLs lndlvldual nomlnees) organlzed wlLh some llllplno
lnvesLors ln March 1993 a hlllpplne corporaLlon known as Lhe hlllpplne Camlng
ManagemenL CorporaLlon (CMC) whlch was lnLended Lo be Lhe medlum Lhrough
whlch Lhe Lechnlcal and managemenL servlces requlred for Lhe pro[ecL would be
offered and dellvered Lo CSC
1

8efore AugusL 1993 Lhe CSC formally lssued a 8equesL for roposal (8l) for Lhe
Lease ConLracL of an onllne loLLery sysLem for Lhe CSC
2
8elevanL provlslons of
Lhe 8l are Lhe followlng
1 \cu1lv 5uMMAk
xxx xxx xxx
12 CSC ls seeklng a sulLable conLracLor whlch shall bulld aL lLs own expense all
Lhe faclllLles (laclllLles) needed Lo operaLe and malnLaln a naLlonwlde onllne
loLLery sysLem CSC shall lease Lhe laclllLles for a flxed percenLage ofquarLerly
gross recelpLs All recelpLs from LlckeL sales shall be Lurned over dlrecLly Lo CSC All
123

caplLal operaLlng expenses and expanslon expenses and rlsks shall be for Lhe
excluslve accounL of Lhe Lessor
xxx xxx xxx
14 1he lease shall be for a perlod noL exceedlng flfLeen (13) years
13 1he Lessor ls expecLed Lo submlL a comprehenslve naLlonwlde loLLery
developmenL plan (uevelopmenL lan) whlch wlll lnclude Lhe game Lhe
markeLlng of Lhe games and Lhe loglsLlcs Lo lnLroduce Lhe games Lo all Lhe clLles
and munlclpallLles of Lhe counLry wlLhln flve (3) years
xxx xxx xxx
17 1he Lessor shall be selecLed based on lLs Lechnlcal experLlse hardware and
sofLware capablllLy malnLenance supporL and flnanclal resources 1he
uevelopmenL lan shall have a subsLanLlal bearlng on Lhe cholce of Lhe Lessor 1he
Lessor shall be a domesLlc corporaLlon wlLh aL leasL slxLy percenL (60) of lLs shares
owned by llllplno shareholders
xxx xxx xxx
1he Cfflce of Lhe resldenL Lhe naLlonal ulsasLer ConLrol CoordlnaLlng Councll Lhe
hlllpplne naLlonal ollce and Lhe naLlonal 8ureau of lnvesLlgaLlon shall be
auLhorlzed Lo use Lhe naLlonwlde LelecommunlcaLlons sysLem of Lhe laclllLles lree
of Charge
18 upon explraLlon of Lhe lease Lhe laclllLles shall be owned by CSC wlLhouL any
addlLlonal conslderaLlon
3

xxx xxx xxx
22 C8!LC1lvLS
1he ob[ecLlves of CSC ln leaslng Lhe laclllLles from a prlvaLe enLlLy are as follows
xxx xxx xxx
222 Lnable CSC Lo operaLe a naLlonwlde onllne LoLLery sysLem aL no expense or
rlsk Lo Lhe governmenL
xxx xxx xxx
24 uu1lLS Anu 8LSCnSl8lLl1lLS Cl 1PL LLSSC8
xxx xxx xxx
242 1PL LLSSC8
1he roponenL ls expecLed Lo furnlsh and malnLaln Lhe laclllLles lncludlng Lhe
personnel needed Lo operaLe Lhe compuLers Lhe communlcaLlons neLwork and
sales offlces under a bulldlease basls 1he prlnLlng of LlckeLs shall be underLaken
under Lhe supervlslon and conLrol of CSC 1he laclllLles shall enable CSC Lo
compuLerlze Lhe enLlre gamlng sysLem
1he roponenL ls expecLed Lo formulaLe and deslgn consumerorlenLed MasLer
Cames lan sulLed Lo Lhe markeLplace especlally geared Lo llllplno gamlng hablLs
and preferences ln addlLlon Lhe MasLer Cames lan ls expecLed Lo lnclude a
roducL lan for each game and explaln how each wlll be lnLroduced lnLo Lhe
markeL 1hls wlll be an lnLegral parL of Lhe uevelopmenL lan whlch CSC wlll
requlre from Lhe roponenL
xxx xxx xxx
1he roponenL ls expecLed Lo provlde upgrades Lo modernlze Lhe enLlre gamlng
sysLem over Lhe llfe ofLhe lease conLracL
1he roponenL ls expecLed Lo provlde Lechnology Lransfer Lo CSC Lechnlcal
personnel
4

7 CNkAl CulullN5 lOk lkOlONN15
xxx xxx xxx
llnally Lhe roponenL musL be able Lo sLand Lhe acld LesL of provlng LhaL lL ls an
enLlLy able Lo Lake on Lhe role of responslble malnLalner of Lhe onllne loLLery
sysLem and able Lo achleve SCCs goal of formallzlng an onllne loLLery sysLem Lo
achleve lLs mandaLed ob[ecLlve
3

xxx xxx xxx
16 ullNl1lON Ol 1kM5
laclllLles All caplLal equlpmenL compuLers Lermlnals sofLware naLlonwlde
LelecommunlcaLlon neLwork LlckeL sales offlces furnlshlngs and flxLures prlnLlng
cosLs cosL of salarles and wages adverLlslng and promoLlon expenses
malnLenance cosLs expanslon and replacemenL cosLs securlLy and lnsurance and
all oLher relaLed expenses needed Lo operaLe naLlonwlde onllne loLLery sysLem
6

Conslderlng Lhe above clLlzenshlp requlremenL Lhe CMC clalms LhaL Lhe 8er[aya
Croup underLook Lo reduce lLs equlLy sLakes ln CMC Lo 40 by selllng 33 ouL
of Lhe orlglnal 73 forelgn sLockholdlngs Lo local lnvesLors
Cn 13 AugusL 1993 CMC submlLLed lLs bld Lo Lhe CSC
7

1he blds were evaluaLed by Lhe Speclal reCuallflcaLlon 8lds and Awards
CommlLLee (S8AC) for Lhe onllne loLLery and lLs 8ld 8eporL was LhereafLer
submlLLed Lo Lhe Cfflce of Lhe resldenL
8
1he submlsslon was preceded by
complalnLs by Lhe CommlLLees Chalrperson ur MlLa ardo de 1avera
9

Cn 21 CcLober 1993 Lhe Cfflce of Lhe resldenL announced LhaL lL had glven Lhe
respondenL CMC Lhe goslgnal Lo operaLe Lhe counLrys onllne loLLery sysLem and
LhaL Lhe correspondlng lmplemenLlng conLracL would be submlLLed noL laLer Lhan 8
november 1993 for flnal clearance and approval by Lhe Chlef LxecuLlve
10
1hls
announcemenL was publlshed ln Lhe Manlla SLandard hlllpplne ually lnqulrer and
Lhe Manlla 1lmes on 29 CcLober 1993
11

Cn 4 november 1993 klLCS8A?An senL an open leLLer Lo resldenLlal lldel v
8amos sLrongly opposlng Lhe seLLlng up Lo Lhe onllne loLLery sysLem on Lhe basls of
serlous moral and eLhlcal conslderaLlons
12

AL Lhe meeLlng of Lhe CommlLLee on Cames and AmusemenLs of Lhe SenaLe on 12
november 1993 klLCS8A?An relLeraLed lLs vlgorous opposlLlon Lo Lhe onllne
loLLery on accounL of lLs lmmorallLy and lllegallLy
13

Cn 19 november 1993 Lhe medla reporLed LhaL desplLe Lhe opposlLlon
Malacanang wlll push Lhrough wlLh Lhe operaLlon of an onllne loLLery sysLem
naLlonwlde and LhaL lL ls acLually Lhe respondenL CSC whlch wlll operaLe Lhe
loLLery whlle Lhe wlnnlng corporaLe bldders are merely lessors
14

124

Cn 1 uecember 1993 klLCS8A?An requesLed coples of all documenLs perLalnlng Lo
Lhe loLLery award from LxecuLlve SecreLary 1eoflsLo Culngona !r ln hls answer of
17 uecember 1993 Lhe LxecuLlve SecreLary lnformed klLCS8A?An LhaL Lhe
requesLed documenLs would be duly LransmlLLed before Lhe end of Lhe monLh
13

Powever on LhaL same daLe an agreemenL denomlnaLed as ConLracL of Lease
was flnally execuLed by respondenL CSC and respondenL CMC
16
1he resldenL
per Lhe press sLaLemenL lssued by Lhe Cfflce of Lhe resldenL approved lL on 20
uecember 1993
17

ln vlew of Lhelr maLerlallLy and relevance we quoLe Lhe followlng sallenL provlslons
of Lhe ConLracL of Lease
1 uLllnl1lCnS
1he followlng words and Lerms shall have Lhe followlng respecLlve meanlngs
11 8enLal lee AmounL Lo be pald by CSC Lo Lhe LLSSC8 as compensaLlon for
Lhe fulflllmenL of Lhe obllgaLlons of Lhe LLSSC8 under Lhls ConLracL lncludlng buL
noL llmlLed Lo Lhe lease of Lhe laclllLles
xxx xxx xxx
13 laclllLles All caplLal equlpmenL compuLers Lermlnals sofLware (lncludlng
source codes for Lhe CnLlne LoLLery appllcaLlon sofLware for Lhe Lermlnals
LelecommunlcaLlons and cenLral sysLems) Lechnology lnLellecLual properLy rlghLs
LelecommunlcaLlons neLwork and furnlshlngs and flxLures
14 MalnLenance and CLher CosLs All cosLs and expenses relaLlng Lo prlnLlng
manpower salarles and wages adverLlslng and promoLlon malnLenance expanslon
and replacemenL securlLy and lnsurance and all oLher relaLed expenses needed Lo
operaLe an CnLlne LoLLery SysLem whlch shall be for Lhe accounL of Lhe LLSSC8
All expenses relaLlng Lo Lhe seLLlngup operaLlon and malnLenance of LlckeL sales
offlces of dealers and reLallers shall be borne by CSCs dealers and reLallers
13 uevelopmenL lan 1he deLalled plan of all games Lhe markeLlng Lhereof
number of players value of wlnnlngs and Lhe loglsLlcs requlred Lo lnLroduce Lhe
games lncludlng Lhe MasLer Cames lan as approved by CSC aLLached hereLo as
Annex A modlfled as necessary by Lhe provlslons of Lhls ConLracL
xxx xxx xxx
18 Lscrow ueposlL 1he proposal deposlL ln Lhe sum of 1hree Pundred Mllllon
esos (30000000000) submlLLed by Lhe LLSSC8 Lo CSC pursuanL Lo Lhe
requlremenLs of Lhe 8equesL for roposals
2 Su8!LC1 MA11L8 Cl 1PL LLASL
1he LLSSC8 shall bulld furnlsh and malnLaln aL lLs own expense and rlsk Lhe
laclllLles for Lhe CnLlne LoLLery SysLem of CSC ln Lhe 1errlLory on an excluslve
basls 1he LLSSC8 shall bear all MalnLenance and CLher CosLs as deflned hereln
xxx xxx xxx
3 8Ln1AL lLL
lor and ln conslderaLlon of Lhe performance by Lhe LLSSC8 of lLs obllgaLlons hereln
CSC shall pay LLSSC8 a flxed 8enLal lee equal Lo four polnL nlne percenL (49) of
gross recelpLs from LlckeL sales payable neL of Laxes requlred by law Lo be wlLhheld
on a semlmonLhly basls Coodwlll franchlse and slmllar fees shall belong Lo CSC
4 LLASL L8lCu
1he perlod of Lhe lease shall commence nlneLy (90) days from Lhe daLe of effecLlvlLy
of Lhls ConLracL and shall run for a perlod of elghL (8) years LhereafLer unless
sooner LermlnaLed ln accordance wlLh Lhls ConLracL
3 8lCP1S Anu C8LlCA1lCnS Cl CSC AS CL8A1C8 Cl 1PL CnLlnL LC11L8?
S?S1LM
CSC shall be Lhe sole and lndlvldual operaLor of Lhe CnLlne LoLLery SysLem
ConsequenLly
31 CSC shall have sole responslblllLy Lo declde wheLher Lo lmplemenL fully or
parLlally Lhe MasLer Cames lan of Lhe LLSSC8 CSC shall have Lhe sole
responslblllLy Lo deLermlne Lhe Llme for lnLroduclng new games Lo Lhe markeL 1he
MasLer Cames lan lncluded ln Annex A hereof ls hereby approved by CSC
32 CSC shall have conLrol over revenues and recelpLs of whaLever naLure from Lhe
CnLlne LoLLery SysLem AfLer paylng Lhe 8enLal lee Lo Lhe LLSSC8 CSC shall have
excluslve responslblllLy Lo deLermlne Lhe 8evenue AllocaLlon lan rovlded LhaL
Lhe same shall be conslsLenL wlLh Lhe requlremenL of 8A no 1169 as amended
whlch flxes a prlze fund of flfLy flve percenL (33) on Lhe average
33 CSC shall have excluslve conLrol over Lhe prlnLlng of LlckeLs lncludlng buL noL
llmlLed Lo Lhe deslgn LexL and conLenLs Lhereof
34 CSC shall have sole responslblllLy over Lhe appolnLmenL of dealers or reLallers
LhroughouL Lhe counLry CSC shall appolnL Lhe dealers and reLallers ln a Llmely
manner wlLh due regard Lo Lhe lmplemenLaLlon LlmeLable of Lhe CnLlne LoLLery
SysLem noLhlng hereln shall preclude Lhe LLSSC8 from recommendlng dealers or
reLallers for appolnLmenL by CSC whlch shall acL on sald recommendaLlon wlLhln
forLyelghL (48) hours
33 CSC shall deslgnaLe Lhe necessary personnel Lo monlLor and audlL Lhe dally
performance of Lhe CnLlne LoLLery SysLem lor Lhls purpose CSC deslgnees shall
be glven free of charge sulLable and adequaLe space furnlLure and flxLures ln all
offlces of Lhe LLSSC8 lncludlng buL noL llmlLed Lo lLs headquarLers alLernaLe slLe
reglonal and area offlces
36 CSC shall have Lhe responslblllLy Lo resolve and excluslve [urlsdlcLlon over all
maLLers lnvolvlng Lhe operaLlon of Lhe CnLlne LoLLery SysLem noL oLherwlse
provlded ln Lhls ConLracL
37 CSC shall promulgaLe procedural and coordlnaLlng rules governlng all acLlvlLles
relaLlng Lo Lhe CnLlne LoLLery SysLem
38 CSC wlll be responslble for Lhe paymenL of prlze monles commlsslons Lo
agenLs and dealers and Laxes and levles (lf any) chargeable Lo Lhe operaLor of Lhe
CnLlne LoLLery SysLem 1he LLSSC8 wlll bear all oLher MalnLenance and CLher
CosLs excepL as provlded ln SecLlon 14
39 CSC shall asslsL Lhe LLSSC8 ln Lhe followlng
123

391 Work permlLs for Lhe LLSSC8s sLaff
392 Approvals for lmporLaLlon of Lhe laclllLles
393 Approvals and consenLs for Lhe CnLlne LoLLery SysLem and
394 8uslness and premlses llcenses for all offlces of Lhe LLSSC8 and llcenses for
Lhe LelecommunlcaLlons neLwork
310 ln Lhe evenL LhaL CSC shall preLermlnaLe Lhls ConLracL or suspend Lhe
operaLlon of Lhe CnLlne LoLLery SysLem ln breach of Lhls ConLracL and Lhrough no
faulL of Lhe LLSSC8 CSC shall prompLly and ln any evenL noL laLer Lhan slxLy (60)
days relmburse Lhe LLSSC8 Lhe amounL of lLs LoLal lnvesLmenL cosL assoclaLed wlLh
Lhe CnLlne LoLLery SysLem lncludlng buL noL llmlLed Lo Lhe cosL of Lhe laclllLles
and furLher compensaLe Lhe LLSSC8 for loss of expecLed neL proflL afLer Lax
compuLed over Lhe unexplred Lerm of Lhe lease
6 uu1lLS Anu 8LSCnSl8lLl1lLS Cl 1PL LLSSC8
1he LLSSC8 ls one of noL more Lhan Lhree (3) lessors of slmllar faclllLles for Lhe
naLlonwlde CnLlne LoLLery SysLem of CSC lL ls undersLood LhaL Lhe rlghLs of Lhe
LLSSC8 are prlmarlly Lhose of a lessor of Lhe laclllLles and consequenLly all rlghLs
lnvolvlng Lhe buslness aspecLs of Lhe use of Lhe laclllLles are wlLhln Lhe [urlsdlcLlon
of CSC uurlng Lhe Lerm of Lhe lease Lhe LLSSC8 shall
61 MalnLaln and preserve lLs corporaLe exlsLence rlghLs and prlvlleges and
conducL lLs buslness ln an orderly efflclenL and cusLomary manner
62 MalnLaln lnsurance coverage wlLh lnsurers accepLable Lo CSC on all laclllLles
63 Comply wlLh all laws sLaLues rules and regulaLlons orders and dlrecLlves
obllgaLlons and duLles by whlch lL ls legally bound
64 uuly pay and dlscharge all Laxes assessmenLs and governmenL charges now and
hereafLer lmposed of whaLever naLure LhaL may be legally levled upon lL
63 keep all Lhe laclllLles ln fall safe condlLlon and lf necessary upgrade replace
and lmprove Lhe laclllLles from Llme Lo Llme as new Lechnology develops ln order
Lo make Lhe CnLlne LoLLery SysLem more cosLeffecLlve and/or compeLlLlve and as
may be requlred by CSC shall noL lmpose such requlremenLs unreasonably nor
arblLrarlly
66 rovlde CSC wlLh managemenL Lermlnals whlch wlll allow realLlme monlLorlng
of Lhe CnLlne LoLLery SysLem
67 upon effecLlvlLy of Lhls ConLracL commence Lhe Lralnlng of CSC and oLher
local personnel and Lhe Lransfer of Lechnology and experLlse such LhaL aL Lhe end
of Lhe Lerm of Lhls ConLracL CSC wlll be able Lo effecLlvely Lakeover Lhe laclllLles
and efflclenLly operaLe Lhe CnLlne LoLLery SysLem
68 underLake a poslLlve adverLlslng and promoLlons campalgn for boLh lnsLlLuLlonal
and producL llnes wlLhouL engaglng ln negaLlve adverLlslng agalnsL oLher lessors
69 8ear all expenses and rlsks relaLlng Lo Lhe laclllLles lncludlng buL noL llmlLed Lo
MalnLenance and CLher CosLs and
xxx xxx xxx
610 8ear all rlsks lf Lhe revenues from LlckeL sales on an annuallzed basls are
lnsufflclenL Lo pay Lhe enLlre prlze money
611 8e and ls hereby auLhorlzed Lo collecL and reLaln for lLs own accounL a
securlLy deposlL from dealers and reLallers ln an amounL deLermlned wlLh Lhe
approval of CSC ln respecL of equlpmenL supplled by Lhe LLSSC8 CSCs approval
shall noL be unreasonably wlLhheld
xxx xxx xxx
612 Comply wlLh procedural and coordlnaLlng rules lssued by CSC
7 8L8LSLn1A1lCnS Anu WA88An1lLS
1he LLSSC8 represenLs and warranLs LhaL
71 1he LLSSC8 ls corporaLlon duly organlzed and exlsLlng under Lhe laws of Lhe
8epubllc of Lhe hlllpplnes aL leasL slxLy percenL (60) of Lhe ouLsLandlng caplLal
sLock of whlch ls owned by llllplno shareholders 1he mlnlmum requlred llllplno
equlLy parLlclpaLlon shall noL be lmpalred Lhrough volunLary or lnvolunLary Lransfer
dlsposlLlon or sale of shares of sLock by Lhe presenL sLockholders
72 1he LLSSC8 and lLs AfflllaLes have Lhe full corporaLe and legal power and
auLhorlLy Lo own and operaLe Lhelr properLles and Lo carry on Lhelr buslness ln Lhe
place where such properLles are now or may be conducLed
73 1he LLSSC8 has or has access Lo all Lhe flnanclng and fundlng requlremenLs Lo
prompLly and effecLlvely carry ouL Lhe Lerms of Lhls ConLracL
74 1he LLSSC8 has or has access Lo all Lhe managerlal and Lechnlcal experLlse Lo
prompLly and effecLlvely carry ouL Lhe Lerms of Lhls ConLracL
xxx xxx xxx
10 1LLLCCMMunlCA1lCnS nL1WC8k
1he LLSSC8 shall esLabllsh a LelecommunlcaLlons neLwork LhaL wlll connecL all
munlclpallLles and clLles ln Lhe 1errlLory ln accordance wlLh aL Lhe LLSSC8s opLlon
elLher of Lhe LLSSC8s proposals (or a comblnaLlons of boLh such proposals)
aLLached hereLo as Annex 8 and under Lhe followlng CSC schedule
xxx xxx xxx
CSC may aL lLs opLlon requlre Lhe LLSSC8 Lo esLabllsh Lhe LelecommunlcaLlons
neLwork ln accordance wlLh Lhe above 1lmeLable ln provlnces where Lhe LLSSC8
has noL yeL lnsLalled Lermlnals rovlded LhaL such provlnces have exlsLlng nodes
Cnce a munlclpallLy or clLy ls servlced by land llnes of a llcensed publlc Lelephone
company and such llnes are connecLed Lo MeLro Manlla Lhen Lhe obllgaLlon of Lhe
LLSSC8 Lo connecL such munlclpallLy or clLy Lhrough a LelecommunlcaLlons neLwork
shall cease wlLh respecL Lo such munlclpallLy or clLy 1he volce faclllLy wlll cover Lhe
four offlces of Lhe Cfflce of Lhe resldenL naLlonal ulsasLer ConLrol CoordlnaLlng
Councll hlllpplne naLlonal ollce and Lhe naLlonal 8ureau of lnvesLlgaLlon and
each clLy and munlclpallLy ln Lhe 1errlLory excepL MeLro Manlla and Lhose clLles
and munlclpallLles whlch have easy Lelephone access from Lhese four offlces volce
calls from Lhe four offlces shall be LransmlLLed vla radlo or vSA1 Lo Lhe remoLe
munlclpallLles whlch wlll be connecLed Lo Lhls volce faclllLy Lhrough wlred neLwork
126

or by radlo 1he faclllLy shall be deslgned Lo handle four prlvaLe conversaLlons aL
any one Llme
xxx xxx xxx
13 S1CCk ulSL8SAL LAn
WlLhln Lwo (2) years from Lhe effecLlvlLy of Lhls ConLracL Lhe LLSSC8 shall cause
lLself Lo be llsLed ln Lhe local sLock exchange and offer aL leasL LwenLy flve percenL
(23) of lLs equlLy Lo Lhe publlc
14 nCnCCML1l1lCn
1he LLSSC8 shall noL dlrecLly or lndlrecLly underLake any acLlvlLy or buslness ln
compeLlLlon wlLh or adverse Lo Lhe CnLlne LoLLery SysLem of CSC unless lL obLalns
Lhe laLLers prlor wrlLLen consenL LhereLo
13 PCLu PA8MLLSS CLAuSL
131 1he LLSSC8 shall aL all Llmes proLecL and defend aL lLs cosL and expense CSC
from and agalnsL any and all llablllLles and clalms for damages and/or sulLs for or by
reason of any deaLhs of or any ln[ury or ln[urles Lo any person or persons or
damages Lo properLy of any klnd whaLsoever caused by Lhe LLSSC8 lLs
subconLracLors lLs auLhorlzed agenLs or employees from any cause or causes
whaLsoever
132 1he LLSSC8 hereby covenanLs and agrees Lo lndemnlfy and hold CSC
harmless from all llablllLles charges expenses (lncludlng reasonable counsel fees)
and cosLs on accounL of or by reason of any such deaLh or deaLhs ln[ury or ln[urles
llablllLles clalms sulLs or losses caused by Lhe LLSSC8s faulL or negllgence
133 1he LLSSC8 shall aL all Llmes proLecL and defend aL lLs own cosL and expense
lLs LlLle Lo Lhe faclllLles and CSCs lnLeresL Lhereln from and agalnsL any and all
clalms for Lhe duraLlon of Lhe ConLracL unLll Lransfer Lo CSC of ownershlp of Lhe
servlceable laclllLles
16 SLCu8l1?
161 1o ensure falLhful compllance by Lhe LLSSC8 wlLh Lhe Lerms of Lhe ConLracL
Lhe LLSSC8 shall secure a erformance 8ond from a repuLable lnsurance company
or companles accepLable Lo CSC
162 1he erformance 8ond shall be ln Lhe lnlLlal amounL of 1hree Pundred Mllllon
esos (30000000000) Lo lLs uS dollar equlvalenL and shall be renewed Lo cover
Lhe duraLlon of Lhe ConLracL Powever Lhe erformance 8ond shall be reduced
proporLlonaLely Lo Lhe percenLage of unencumbered Lermlnals lnsLalled rovlded
LhaL Lhe erformance 8ond shall ln no case be less Lhan Cne Pundred llfLy Mllllon
esos (13000000000)
163 1he LLSSC8 may aL lLs opLlon malnLaln lLs Lscrow ueposlL as Lhe erformance
8ond
17 LnAL1lLS
171 LxcepL as may be provlded ln SecLlon 172 should Lhe LLSSC8 fall Lo Lake
remedlal measures wlLhln seven (7) days and recLlfy Lhe breach wlLhln LhlrLy (30)
days from wrlLLen noLlce by CSC of any wllfull or grossly negllgenL vlolaLlon of Lhe
maLerlal Lerms and condlLlons of Lhls ConLracL all unencumbered laclllLles shall
auLomaLlcally become Lhe properLy of CSC wlLhouL conslderaLlon and wlLhouL
need for furLher noLlce or demand by CSC 1he erformance 8ond shall llkewlse
be forfelLed ln favor of CSC
172 Should Lhe LLSSC8 fall Lo comply wlLh Lhe Lerms of Lhe 1lmeLables provlded ln
SecLlon 9 and 10 lL shall be sub[ecL Lo an lnlLlal enalLy of 1wenLy 1housand esos
(2000000) per clLy or munlclpallLy per every monLh of delay rovlded LhaL Lhe
enalLy shall lncrease every nlneLy (90) days by Lhe amounL of 1wenLy 1housand
esos (2000000) per clLy or munlclpallLy per monLh whllsL shall fallure Lo comply
perslsLs 1he penalLy shall be deducLed by CSC from Lhe renLal fee
xxx xxx xxx
20 CWnL8SPl Cl 1PL lAClLl1lLS
AfLer explraLlon of Lhe Lerm of Lhe lease as provlded ln SecLlon 4 Lhe laclllLles
dlrecLly requlred for Lhe CnLlne LoLLery SysLem menLloned ln SecLlon 13 shall
auLomaLlcally belong ln full ownershlp Lo CSC wlLhouL any furLher conslderaLlon
oLher Lhan Lhe 8enLal lees already pald durlng Lhe effecLlvlLy of Lhe lease
21 1L8MlnA1lCn Cl 1PL LLASL
CSC may LermlnaLe Lhls ConLracL for any breach of Lhe maLerlal provlslons of Lhls
ConLracL lncludlng Lhe followlng
211 1he LLSSC8 ls lnsolvenL or bankrupL or unable Lo pay lLs debLs sLops or
suspends or LhreaLens Lo sLop or suspend paymenL of all or a maLerlal parL of lLs
debLs or proposes or makes a general asslgnmenL or an arrangemenL or
composlLlons wlLh or for Lhe beneflL of lLs credlLors or
212 An order ls made or an effecLlve resoluLlon passed for Lhe wlndlng up or
dlssoluLlon of Lhe LLSSC8 or when lL ceases or LhreaLens Lo cease Lo carry on all or a
maLerlal parL of lLs operaLlons or buslness or
213 Any maLerlal sLaLemenL represenLaLlon or warranLy made or furnlshed by Lhe
LLSSC8 proved Lo be maLerlally false or mlsleadlng
sald LermlnaLlon Lo Lake effecL upon recelpL of wrlLLen noLlce of LermlnaLlon by Lhe
LLSSC8 and fallure Lo Lake remedlal acLlon wlLhln seven (7) days and cure or
remedy Lhe same wlLhln LhlrLy (30) days from noLlce
Any suspenslon cancellaLlon or LermlnaLlon of Lhls ConLracL shall noL relleve Lhe
LLSSC8 of any llablllLy LhaL may have already accrued hereunder
xxx xxx xxx
Conslderlng Lhe denlal by Lhe Cfflce of Lhe resldenL of lLs proLesL and Lhe
sLaLemenL of AsslsLanL LxecuLlve SecreLary 8enaLo Corona LhaL only a courL
ln[uncLlon can sLop Malacanang and Lhe lmmlnenL lmplemenLaLlon of Lhe
ConLracL of Lease ln lebruary 1994 klLCS8A?An wlLh lLs copeLlLloners flled on 28
!anuary 1994 Lhls peLlLlon
ln supporL of Lhe peLlLlon Lhe peLlLloners clalm LhaL
x x 1PL ClllCL Cl 1PL 8LSluLn1 AC1lnC 1P8CuCP 8LSCnuLn1S
LxLCu1lvL SLC8L1A8? Anu/C8 ASSlS1An1 LxLCu1lvL SLC8L1A8? lC8 LLCAL
127

AllAl8S Anu 1PL CSC C8AvLL? A8uSLu 1PLl8 ulSC8L1lCn Anu/C8
lunC1lCnS 1An1AMCun1 1C LACk Cl !u8lSulC1lCn Anu/C8 Au1PC8l1? ln
8LSLC1lvLL? (A) A8CvlnC 1PL AWA8u Cl 1PL CCn18AC1 1C Anu (8)
Ln1L8lnC ln1C 1PL SCCALLLu CCn18AC1 Cl LLASL Wl1P 8LSCnuLn1 CMC
lC8 1PL lnS1ALLA1lCn LS1A8LlSPMLn1 Anu CL8A1lCn Cl 1PL CnLlnL
LC11L8? Anu 1LLLCCMMunlCA1lCn S?S1LMS 8LCul8Lu Anu/C8 Au1PC8lZLu
unuL8 1PL SAlu CCn18AC1 CCnSluL8lnC 1PA1
a) under SecLlon 1 of Lhe CharLer of Lhe CSC Lhe CSC ls prohlblLed from holdlng
and conducLlng loLLerles ln collaboraLlon assoclaLlon or [olnL venLure wlLh any
person assoclaLlon company or enLlLy
b) under AcL no 3846 and esLabllshed [urlsprudence a Congresslonal franchlse ls
requlred before any person may be allowed Lo esLabllsh and operaLe sald
LelecommunlcaLlons sysLem
c) under SecLlon 11 ArLlcle xll of Lhe ConsLlLuLlon a less Lhan 60 llllplnoowned
and/or conLrolled corporaLlon llke Lhe CMC ls dlsquallfled from operaLlng a
publlc servlce llke Lhe sald LelecommunlcaLlons sysLem and
d) 8espondenL CMC ls noL auLhorlzed by lLs charLer and under Lhe lorelgn
lnvesLmenL AcL (8A no 7042) Lo lnsLall esLabllsh and operaLe Lhe onllne loLLo and
LelecommunlcaLlons sysLems
18

eLlLloners submlL LhaL Lhe CSC cannoL valldly enLer lnLo Lhe assalled ConLracL of
Lease wlLh Lhe CMC because lL ls an arrangemenL whereln Lhe CSC would hold
and conducL Lhe onllne loLLery sysLem ln collaboraLlon or assoclaLlon wlLh Lhe
CMC ln vlolaLlon of SecLlon 1(8) of 8A no 1169 as amended by 8 8lg 42
whlch prohlblLs Lhe CSC from holdlng and conducLlng charlLy sweepsLakes races
loLLerles and oLher slmllar acLlvlLles ln collaboraLlon assoclaLlon or [olnL venLure
wlLh any person assoclaLlon company or enLlLy forelgn or domesLlc Lven
granLlng otqoeoJo LhaL a lease of faclllLles ls noL wlLhln Lhe conLemplaLlon of
collaboraLlon or assoclaLlon an analysls however of Lhe ConLracL of Lease
clearly shows LhaL Lhere ls a collaboraLlon assoclaLlon or [olnL venLure beLween
respondenLs CSC and CMC ln Lhe holdlng of Lhe CnLlne LoLLery SysLem and
LhaL Lhere are Lerms and condlLlons of Lhe ConLracL showlng LhaL respondenL
CMC ls Lhe acLual loLLo operaLor and noL respondenL CSC
19

1he peLlLloners also polnL ouL LhaL paragraph 10 of Lhe ConLracL of Lease requlres or
auLhorlzes CMC Lo esLabllsh a LelecommunlcaLlons neLwork LhaL wlll connecL all
Lhe munlclpallLles and clLles ln Lhe LerrlLory Powever CMC cannoL do LhaL
because lL has no franchlse from Congress Lo consLrucL lnsLall esLabllsh or operaLe
Lhe neLwork pursuanL Lo SecLlon 1 of AcL no 3846 as amended Moreover CMC
ls a 73 forelgnowned or conLrolled corporaLlon and cannoL Lherefore be granLed
a franchlse for LhaL purpose because of SecLlon 11 ArLlcle xll of Lhe 1987
ConsLlLuLlon lurLhermore slnce Lhe subscrlbed forelgn caplLal of Lhe CMC
comes Lo abouL 73 as shown by paragraph LlCP1 of lLs ArLlcles of
lncorporaLlon lL cannoL lawfully enLer lnLo Lhe conLracL ln quesLlon because all
forms of gambllng and loLLery ls one of Lhem are lncluded ln Lhe socalled
forelgn lnvesLmenLs negaLlve llsL under Lhe lorelgn lnvesLmenLs AcL (8A no 7042)
where only up Lo 40 forelgn caplLal ls allowed
20

llnally Lhe peLlLloners lnslsL LhaL Lhe ArLlcles of lncorporaLlon of CMC do noL
auLhorlze lL Lo esLabllsh and operaLe an onllne loLLery and LelecommunlcaLlons
sysLems
21

Accordlngly Lhe peLlLloners pray LhaL we lssue a Lemporary resLralnlng order and a
wrlL of prellmlnary ln[uncLlon commandlng Lhe respondenLs or any person acLlng ln
Lhelr places or upon Lhelr lnsLrucLlons Lo cease and deslsL from lmplemenLlng Lhe
challenged ConLracL of Lease and afLer hearlng Lhe merlLs of Lhe peLlLlon LhaL we
render [udgmenL declarlng Lhe ConLracL of Lease vold and wlLhouL effecL and
maklng Lhe ln[uncLlon permanenL
22

We requlred Lhe respondenLs Lo commenL on Lhe peLlLlon
ln lLs CommenL flled on 1 March 1994 prlvaLe respondenL CMC asserLs LhaL (1)
lL ls merely an lndependenL conLracLor for a plece of work (le Lhe bulldlng and
malnLenance of a loLLery sysLem Lo be used by CSC ln Lhe operaLlon of lLs loLLery
franchlse) and (2) as such lndependenL conLracLor CMC ls noL a cooperaLor of
Lhe loLLery franchlse wlLh CSC nor ls CSC sharlng lLs franchlse ln collaboraLlon
assoclaLlon or [olnL venLure wlLh CMC as such sLaLuLory llmlLaLlon ls vlewed
from Lhe conLexL lnLenL and splrlL of 8epubllc AcL 1169 as amended by 8aLas
ambansa 42 lL furLher clalms LhaL as an lndependenL conLracLor for a plece of
work lL ls nelLher engaged ln gambllng nor ln publlc servlce relaLlve Lo Lhe
LelecommunlcaLlons neLwork whlch Lhe peLlLloners even conslder as an
lndlspensable requlremenL of an onllne loLLery sysLem llnally lL sLaLes LhaL Lhe
execuLlon and lmplemenLaLlon of Lhe conLracL does noL vlolaLe Lhe ConsLlLuLlon and
Lhe laws LhaL Lhe lssue on Lhe morallLy of Lhe loLLery franchlse granLed Lo Lhe
CSC ls pollLlcal and noL [udlclal or legal whlch should be venLllaLed ln anoLher
forum and LhaL Lhe peLlLloners do noL appear Lo have Lhe legal sLandlng or real
lnLeresL ln Lhe sub[ecL conLracL and ln obLalnlng Lhe rellefs soughL
23

ln Lhelr CommenL flled by Lhe Cfflce of Lhe SollclLor Ceneral publlc respondenLs
LxecuLlve SecreLary 1eoflsLo Culngona !r AsslsLanL LxecuLlve SecreLary 8enaLo
Corona and Lhe CSC malnLaln LhaL Lhe conLracL of lease ln quesLlon does noL
vlolaLe SecLlon 1 of 8A no 1169 as amended by 8 8lg 42 and LhaL Lhe
peLlLloners lnLerpreLaLlon of Lhe phrase ln collaboraLlon assoclaLlon or [olnL
venLure ln SecLlon 1 ls much Loo narrow sLralned and uLLerly devold of loglc for
lL lgnores Lhe reallLy LhaL CSC as a corporaLe enLlLy ls vesLed wlLh Lhe baslc and
essenLlal prerogaLlve Lo enLer lnLo all klnds of LransacLlons or conLracLs as may be
necessary for Lhe aLLalnmenL of lLs purposes and ob[ecLlves WhaL Lhe CSC
charLer seeks Lo prohlblL ls LhaL arrangemenL akln Lo a [olnL venLure or
parLnershlp where Lhere ls communlLy of lnLeresL ln Lhe buslness sharlng of proflLs
and losses and a muLual rlghL of conLrol a characLerlsLlc whlch does noL obLaln ln
a conLracL of lease WlLh respecL Lo Lhe challenged ConLracL of Lease Lhe role of
128

CMC ls llmlLed Lo LhaL of a lessor of Lhe faclllLles for Lhe onllne loLLery sysLem ln
sLrlcL Lechnlcal and legal sense sald conLracL can be caLegorlzed as a conLracL for
a plece of work as deflned ln ArLlcles 1467 1713 and 1644 of Lhe Clvll Code
1hey furLher clalm LhaL Lhe esLabllshmenL of Lhe LelecommunlcaLlons sysLem
sLlpulaLed ln Lhe ConLracL of Lease does noL requlre a congresslonal franchlse
because CMC wlll noL operaLe a publlc uLlllLy moreover CMCs esLabllshmenL
of a LelecommunlcaLlons sysLem ls noL lnLended Lo esLabllsh a LelecommunlcaLlons
buslness and lL has been held LhaL where Lhe faclllLles are operaLed noL for
buslness purposes buL for lLs own use a leglslaLlve franchlse ls noL requlred before
a cerLlflcaLe of publlc convenlence can be granLed
24
Lven granLlng otqoeoJoLhaL
CMC ls a publlc uLlllLy pursuanL Lo Albooo 5
keyes
23
lL can esLabllsh a LelecommunlcaLlons sysLem even wlLhouL a leglslaLlve
franchlse because noL every publlc uLlllLy ls requlred Lo secure a leglslaLlve franchlse
before lL could esLabllsh malnLaln and operaLe Lhe servlce and ln any case
CMCs esLabllshmenL of Lhe LelecommunlcaLlons sysLem sLlpulaLed ln lLs conLracL
of lease wlLh CSC falls wlLhln Lhe excepLlons under SecLlon 1 of AcL no 3846
where a leglslaLlve franchlse ls noL necessary for Lhe esLabllshmenL of radlo
sLaLlons
1hey also argue LhaL Lhe conLracL does noL vlolaLe Lhe lorelgn lnvesLmenL AcL of
1991 LhaL Lhe ArLlcles of lncorporaLlon of CMC auLhorlze lL Lo enLer lnLo Lhe
ConLracL of Lease and LhaL Lhe lssues of wlsdom morallLy and proprleLy of acLs of
Lhe execuLlve deparLmenL are beyond Lhe amblL of [udlclal revlew
llnally Lhe publlc respondenLs allege LhaL Lhe peLlLloners have no sLandlng Lo
malnLaln Lhe lnsLanL sulL clLlng our resoluLlon ln volmoote vs lblllpploe cbotlty
5weepstokes Offlce
26

Several parLles flled moLlons Lo lnLervene as peLlLloners ln Lhls case
27
buL only Lhe
moLlon of SenaLors AlberLo 8omulo ArLuro 1olenLlno lranclsco 1aLad Clorla
MacapagalArroyo vlcenLe SoLLo lll !ohn Csmena 8amon 8evllla and !ose
Llna
28
was granLed and Lhe respondenLs were requlred Lo commenL on Lhelr
peLlLlon ln lnLervenLlon whlch Lhe publlc respondenLs and CMC dld
ln Lhe meanLlme Lhe peLlLloners flled wlLh Lhe SecurlLles and Lxchange Commlsslon
on 29 March 1994 a peLlLlon agalnsL CMC for Lhe nulllflcaLlon of Lhe laLLers
Ceneral lnformaLlon SheeLs 1haL case however has no bearlng ln Lhls peLlLlon
Cn 11 Aprll 1994 we heard Lhe parLles ln oral argumenLs 1hereafLer we resolved
Lo conslder Lhe maLLer submlLLed for resoluLlon and pendlng resoluLlon of Lhe
ma[or lssues ln Lhls case Lo lssue a Lemporary resLralnlng order commandlng Lhe
respondenLs or any person acLlng ln Lhelr place or upon Lhelr lnsLrucLlons Lo cease
and deslsL from lmplemenLlng Lhe challenged ConLracL of Lease
ln Lhe dellberaLlon on Lhls case on 26 Aprll 1994 we resolved Lo conslder only Lhese
lssues (a) Lhe locos stooJl of Lhe peLlLloners and (b) Lhe legallLy and valldlLy of Lhe
ConLracL of Lease ln Lhe llghL of SecLlon 1 of 8A no 1169 as amended by 8 8lg
42 whlch prohlblLs Lhe CSC from holdlng and conducLlng loLLerles ln
collaboraLlon assoclaLlon or [olnL venLure wlLh any person assoclaLlon company or
enLlLy wheLher domesLlc or forelgn Cn Lhe flrsL lssue seven !usLlces voLed Lo
susLaln Lhe locos stooJl of Lhe peLlLloners whlle slx voLed noL Lo Cn Lhe second
lssue Lhe seven !usLlces were of Lhe oplnlon LhaL Lhe ConLracL of Lease vlolaLes Lhe
excepLlon Lo SecLlon 1(8) of 8A no 1169 as amended by 8 8lg 42 and ls
Lherefore lnvalld and conLrary Lo law 1he slx !usLlces sLaLed LhaL Lhey wlshed Lo
express no oplnlon Lhereon ln vlew of Lhelr sLand on Lhe flrsL lssue 1he Chlef !usLlce
Look no parL because one of Lhe ulrecLors of Lhe CSC ls hls broLherlnlaw
1hls case was Lhen asslgned Lo Lhls pooeote for Lhe wrlLlng of Lhe oplnlon of Lhe
CourL
1he prellmlnary lssue on Lhe locos stooJl of Lhe peLlLloners should lndeed be
resolved ln Lhelr favor A parLys sLandlng before Lhls CourL ls a procedural
LechnlcallLy whlch lL may ln Lhe exerclse of lLs dlscreLlon seL aslde ln vlew of Lhe
lmporLance of Lhe lssues ralsed ln Lhe landmark metqeocy lowets coses
29
Lhls
CourL brushed aslde Lhls LechnlcallLy because Lhe LranscendenLal lmporLance Lo
Lhe publlc of Lhese cases demands LhaL Lhey be seLLled prompLly and deflnlLely
brushlng aslde lf we musL LechnlcallLles of procedure (Avelloo vs coeoco C8 no
L2821) lnsofar as Laxpayers sulLs are concerned Lhls CourL had declared LhaL lL
ls noL devold of dlscreLlon as Lo wheLher or noL lL should be enLerLalned
30
or LhaL
lL en[oys an open dlscreLlon Lo enLerLaln Lhe same or noL
31
ln ue lo llooo vs
Albo
32
Lhls CourL declared
1 1he argumenL as Lo Lhe lack of sLandlng of peLlLloners ls easlly resolved As far as
!udge de la Llana ls concerned he cerLalnly falls wlLhln Lhe prlnclple seL forLh ln
!usLlce Laurels oplnlon ln leople vs veto 63 hll 36 (1937) 1hus 1he
unchallenged rule ls LhaL Lhe person who lmpugns Lhe valldlLy of a sLaLuLe musL
have a personal and subsLanLlal lnLeresL ln Lhe case such LhaL he has susLalned or
wlll susLaln dlrecL ln[ury as a resulL of lLs enforcemenL lblJ 89 1he oLher
peLlLloners as members of Lhe bar and offlcers of Lhe courL cannoL be consldered as
devold of any personal and subsLanLlal lnLeresL on Lhe maLLer 1here ls relevance
Lo Lhls excerpL from a separaLe oplnlon lnApoloo It v commlssloo oo lectloos L
40004 !anuary 31 1973 62 SC8A 273 1hen Lhere ls Lhe aLLack on Lhe sLandlng of
peLlLloners as vlndlcaLlng aL mosL whaL Lhey conslder a publlc rlghL and noL
proLecLlng Lhelr rlghLs as lndlvlduals 1hls ls Lo con[ure Lhe specLer of Lhe publlc
rlghL dogma as an lnhlblLlon Lo parLles lnLenL on keeplng publlc offlclals sLaylng on
Lhe paLh of consLlLuLlonallsm As was so well puL by !affe 1he proLecLlon of prlvaLe
rlghLs ls an essenLlal consLlLuenL of publlc lnLeresL and conversely wlLhouL a well
ordered sLaLe Lhere could be no enforcemenL of prlvaLe rlghLs rlvaLe and publlc
lnLeresLs are boLh ln a subsLanLlve and procedural sense aspecLs of Lhe LoLallLy of
Lhe legal order Moreover peLlLloners have convlnclngly shown LhaL ln Lhelr
capaclLy as Laxpayers Lhelr sLandlng Lo sue has been amply demonsLraLed 1here
would be a reLreaL from Lhe llberal approach followed ln loscool v 5ectetoty of
lobllc wotks foreshadowed by Lhe very declslon of leople v veto where Lhe
129

docLrlne was flrsL fully dlscussed lf we acL dlfferenLly now l do noL Lhlnk we are
prepared Lo Lake LhaL sLep 8espondenLs however would hard back Lo Lhe
Amerlcan Supreme CourL docLrlne ln Melloo v ltotbloqbom wlLh Lhelr clalm LhaL
whaL peLlLloners possess ls an lnLeresL whlch ls shared ln common by oLher people
and ls comparaLlvely so mlnuLe and lndeLermlnaLe as Lo afford any basls and
assurance LhaL Lhe [udlclal process can acL on lL 1haL ls Lo speak ln Lhe language of
a bygone era even ln Lhe unlLed SLaLes lor as Chlef !usLlce Warren clearly polnLed
ouL ln Lhe laLer case of llost v cobeo Lhe barrler Lhus seL up lf noL breached has
deflnlLely been lowered
ln kopotltoo oq mqo NoqlllloqkoJ so lomobolooo oq llllploos loc vs
1oo
33
relLeraLed ln 8osco vs lblllpploe Amosemeots ooJ Comloq
cotpototloo
34
Lhls CourL sLaLed
Cb[ecLlons Lo Laxpayers sulLs for lack of sufflclenL personallLy sLandlng or lnLeresL
are however ln Lhe maln procedural maLLers Conslderlng Lhe lmporLance Lo Lhe
publlc of Lhe cases aL bar and ln keeplng wlLh Lhe CourLs duLy under Lhe 1987
ConsLlLuLlon Lo deLermlne wheLher or noL Lhe oLher branches of governmenL have
kepL Lhemselves wlLhln Lhe llmlLs of Lhe ConsLlLuLlon and Lhe laws and LhaL Lhey
have noL abused Lhe dlscreLlon glven Lo Lhem Lhls CourL has brushed aslde
LechnlcallLles of procedure and has Laken cognlzance of Lhese peLlLlons
and ln Assoclotloo of 5moll looJowoets lo tbe lblllpploes loc vs 5ectetoty of
Aqtotloo kefotm
33
lL declared
WlLh parLlcular regard Lo Lhe requlremenL of proper parLy as applled ln Lhe cases
before us we hold LhaL Lhe same ls saLlsfled by Lhe peLlLloners and lnLervenors
because each of Lhem has susLalned or ls ln danger of susLalnlng an lmmedlaLe
ln[ury as a resulL of Lhe acLs or measures complalned of x lotte LevlLL 303 uS
633 AoJ eveo lf sttlctly speokloq tbey ote oot coveteJ by tbe Jefloltloo lt ls stlll
wltblo tbe wlJe Jlsctetloo of tbe coott to wolve tbe tepoltemeot ooJ so temove tbe
lmpeJlmeot to lts oJJtessloq ooJ tesolvloq tbe setloos coostltotloool poestloos
tolseJ
ln Lhe flrsL Lmergency owers Cases ordlnary clLlzens and Laxpayers were allowed
Lo quesLlon Lhe consLlLuLlonallLy of several execuLlve orders lssued by resldenL
Culrlno alLhough Lhey were lnvoklng only an lndlrecL and general lnLeresL shared ln
common wlLh Lhe publlc 1he CourL dlsmlssed Lhe ob[ecLlve LhaL Lhey were noL
proper parLles and ruled LhaL Lhe LranscendenLal lmporLance Lo Lhe publlc of Lhese
cases demands LhaL Lhey be seLLled prompLly and deflnlLely brushlng aslde lf we
musL LechnlcallLles of procedure We have slnce Lhen applled Lhls excepLlon ln
many oLher cases (Lmphasls supplled)
ln uozo vs 5loqsoo
36
Lhls CourL once more sald
lor anoLher we have early as ln Lhe Lmergency owers Cases LhaL where
serlous consLlLuLlonal quesLlons are lnvolved Lhe LranscendenLal lmporLance Lo
Lhe publlc of Lhese cases demands LhaL Lhey be seLLled prompLly and deflnlLely
brushlng aslde lf we musL LechnlcallLles of procedure 1he same pollcy has slnce
Lhen been conslsLenLly followed by Lhe CourL as ln Coozoles vs commlssloo oo
lectloos 21 SC8A 774
1he lederal Supreme CourL of Lhe unlLed SLaLes of Amerlca has also expressed lLs
dlscreLlonary power Lo llberallze Lhe rule on locos stooJl ln uolteJ 5totes vs
leJetol lowet commlssloo and vltqlolo keo Assoclotloo vs leJetol lowet
commlssloo
37
lL held
We hold LhaL peLlLloners have sLandlng ulfferences of vlew however preclude a
slngle oplnlon of Lhe CourL as Lo boLh peLlLloners lL would noL furLher clarlflcaLlon
of Lhls compllcaLed speclalLy of federal [urlsdlcLlon Lhe soluLlon of whose problems
ls ln any evenL more or less deLermlned by Lhe speclflc clrcumsLances of lndlvldual
slLuaLlons Lo seL ouL Lhe dlvergenL grounds ln supporL of sLandlng ln Lhese cases
ln llne wlLh Lhe llberal pollcy of Lhls CourL on locos stooJl ordlnary Laxpayers
members of Congress and even assoclaLlon of planLers and nonproflL clvlc
organlzaLlons were allowed Lo lnlLlaLe and prosecuLe acLlons before Lhls CourL Lo
quesLlon Lhe consLlLuLlonallLy or valldlLy of laws acLs declslons rullngs or orders of
varlous governmenL agencles or lnsLrumenLallLles Among such cases were Lhose
assalllng Lhe consLlLuLlonallLy of (a) 8A no 3836 lnsofar as lL allows reLlremenL
graLulLy and commuLaLlon of vacaLlon and slck leave Lo SenaLors and
8epresenLaLlves and Lo elecLlve offlclals of boLh Pouses of Congress
38
(b) LxecuLlve
Crder no 284 lssued by resldenL Corazon C Aqulno on 23 !uly 1987 whlch
allowed members of Lhe cablneL Lhelr undersecreLarles and asslsLanL secreLarles
Lo hold oLher governmenL offlces or poslLlons
39
(c) Lhe auLomaLlc approprlaLlon for
debL servlce ln Lhe Ceneral ApproprlaLlons AcL
40
(d) 8A no 7036 on Lhe holdlng
of desynchronlzed elecLlons
41
(d) 8A no 1869 (Lhe charLer of Lhe hlllpplne
AmusemenL and Camlng CorporaLlon) on Lhe ground LhaL lL ls conLrary Lo morals
publlc pollcy and order
42
and (f) 8A no 6973 esLabllshlng Lhe hlllpplne naLlonal
ollce
43

CLher cases where we have followed a llberal pollcy regardlng locos stooJl lnclude
Lhose aLLacklng Lhe valldlLy or legallLy of (a) an order allowlng Lhe lmporLaLlon of
rlce ln Lhe llghL of Lhe prohlblLlon lmposed by 8A no 3432
44
(b) u nos 991 and
1033 lnsofar as Lhey proposed amendmenLs Lo Lhe ConsLlLuLlon and u no 1031
lnsofar as lL dlrecLed Lhe CCMLLLC Lo supervlse conLrol hold and conducL Lhe
referendumpleblsclLe on 16 CcLober 1976
43
(c) Lhe blddlng for Lhe sale of Lhe
3179 square meLers of land aL 8oppongl MlnaLoku 1okyo !apan
46
(d) Lhe
approval wlLhouL hearlng by Lhe 8oard of lnvesLmenLs of Lhe amended appllcaLlon
of Lhe 8aLaan eLrochemlcal CorporaLlon Lo Lransfer Lhe slLe of lLs planL from
8aLaan Lo 8aLangas and Lhe valldlLy of such Lransfer and Lhe shlfL of feedsLock from
naphLha only Lo naphLha and/or llquefled peLroleum gas
47
(e) Lhe declslons
orders rullngs and resoluLlons of Lhe LxecuLlve SecreLary SecreLary of llnance
Commlssloner of lnLernal 8evenue Commlssloner of CusLoms and Lhe llscal
lncenLlves 8evlew 8oard exempLlng Lhe naLlonal ower CorporaLlon from lndlrecL
Lax and duLles
48
(f) Lhe orders of Lhe Lnergy 8egulaLory 8oard of 3 and 6 uecember
130

1990 on Lhe ground LhaL Lhe hearlngs conducLed on Lhe second provlslonal lncrease
ln oll prlces dld noL allow Lhe peLlLloner subsLanLlal crossexamlnaLlon
49
(g)
LxecuLlve Crder no 478 whlch levled a speclal duLy of 093 per llLer or 13103
per barrel of lmporLed crude oll and 100 per llLer of lmporLed oll producLs
30
(h)
resoluLlons of Lhe Commlsslon on LlecLlons concernlng Lhe apporLlonmenL by
dlsLrlcL of Lhe number of elecLlve members of5ooqqooloos
31
and (l) memorandum
orders lssued by a Mayor affecLlng Lhe Chlef of ollce of asay ClLy
32

ln Lhe 1973 case of Apoloo vs commlssloo oo lectloos
33
Lhls CourL desplLe lLs
unequlvocal rullng LhaL Lhe peLlLloners Lhereln had no personallLy Lo flle Lhe
peLlLlon resolved neverLheless Lo pass upon Lhe lssues ralsed because of Lhe far
reachlng lmpllcaLlons of Lhe peLlLlon We dld no less ln ue Colo vs
cOMlc
34
where alLhough we declared LhaL ue Cula does noL appear Lo
have locos stooJl a sLandlng ln law a personal or subsLanLlal lnLeresL we brushed
aslde Lhe procedural lnflrmlLy conslderlng Lhe lmporLance of Lhe lssue lnvolved
concernlng as lL does Lhe pollLlcal exerclse of quallfled voLers affecLed by Lhe
apporLlonmenL and peLlLloner alleglng abuse of dlscreLlon and vlolaLlon of Lhe
ConsLlLuLlon by respondenL
We flnd Lhe lnsLanL peLlLlon Lo be of LranscendenLal lmporLance Lo Lhe publlc 1he
lssues lL ralsed are of paramounL publlc lnLeresL and of a caLegory even hlgher Lhan
Lhose lnvolved ln many of Lhe aforeclLed cases 1he ramlflcaLlons of such lssues
lmmeasurably affecL Lhe soclal economlc and moral wellbelng of Lhe people even
ln Lhe remoLesL barangays of Lhe counLry and Lhe counLerproducLlve and
reLrogresslve effecLs of Lhe envlsloned onllne loLLery sysLem are as sLaggerlng as
Lhe bllllons ln pesos lL ls expecLed Lo ralse 1he legal sLandlng Lhen of Lhe peLlLloners
deserves recognlLlon and ln Lhe exerclse of lLs sound dlscreLlon Lhls CourL hereby
brushes aslde Lhe procedural barrler whlch Lhe respondenLs Lrled Lo Lake advanLage
of
And now on Lhe subsLanLlve lssue
SecLlon 1 of 8A no 1169 as amendlng by 8 8lg 42 prohlblLs Lhe CSC from
holdlng and conducLlng loLLerles ln collaboraLlon assoclaLlon or [olnL venLure wlLh
any person assoclaLlon company or enLlLy wheLher domesLlc or forelgn SecLlon 1
provldes
Sec 1 1be lblllpploe cbotlty 5weepstokes Offlce 1he hlllpplne CharlLy
SweepsLakes Cfflce herelnafLer deslgnaLed Lhe Cfflce shall be Lhe prlnclpal
governmenL agency for ralslng and provldlng for funds for healLh programs medlcal
asslsLance and servlces and charlLles of naLlonal characLer and as such shall have
Lhe general powers conferred ln secLlon LhlrLeen of AcL numbered Cne Lhousand
four hundred flfLynlne as amended and shall have Lhe auLhorlLy
A 1o hold and conducL charlLy sweepsLakes races loLLerles and oLher slmllar
acLlvlLles ln such frequency and manner as shall be deLermlned and sub[ecL Lo
such rules and regulaLlons as shall be promulgaLed by Lhe 8oard of ulrecLors
8 Sub[ecL Lo Lhe approval of Lhe MlnlsLer of Puman SeLLlemenLs Lo engage ln
healLh and welfarerelaLed lnvesLmenLs programs ptojects ooJ octlvltles whlch
may be proflLorlenLed by ltself ot lo collobototloo ossoclotloo ot jolot veotote wlLh
any person assoclaLlon company or enLlLy wheLher domesLlc or forelgn except fot
tbe octlvltles meotlooeJ lo tbe pteceJloq potoqtopb (A) for Lhe purpose of
provldlng for permanenL and conLlnulng sources of funds for healLh programs
lncludlng Lhe expanslon of exlsLlng ones medlcal asslsLance and servlces and/or
charlLable granLs rovlded 1haL such lnvesLmenL wlll noL compeLe wlLh Lhe prlvaLe
secLor ln areas where lnvesLmenLs are adequaLe as may be deLermlned by Lhe
naLlonal Lconomlc and uevelopmenL AuLhorlLy (emphasls supplled)
1he language of Lhe secLlon ls lndlspuLably clear LhaL wlLh respecL Lo lLs franchlse or
prlvllege Lo hold and conducL charlLy sweepsLakes races loLLerles and oLher slmllar
acLlvlLles Lhe CSC coooot exerclse lL ln collaboraLlon assoclaLlon or [olnL
venLure wlLh any oLher parLy 1hls ls Lhe unequlvocal meanlng and lmporL of Lhe
phrase excepL for Lhe acLlvlLles menLloned ln Lhe precedlng paragraph (A)
namely cbotlty sweepstokes toces lottetles ooJ otbet slmllot octlvltles
8 8lg 42 orlglnaLed from arllamenLary 8lll no 622 whlch was covered by
CommlLLee 8eporL no 103 as reporLed ouL by Lhe CommlLLee on SocloLconomlc
lannlng and uevelopmenL of Lhe lnLerlm 8aLasang ambansa 1he orlglnal LexL of
paragraph 8 SecLlon 1 of arllamenLary 8lll no 622 reads as follows
1o engage ln any and all lnvesLmenLs and relaLed proflLorlenLed pro[ecLs or
programs and acLlvlLles by lLself or ln collaboraLlon assoclaLlon or [olnL venLure
wlLh any person assoclaLlon company or enLlLy wheLher domesLlc or forelgn for
Lhe maln purpose of ralslng funds for healLh and medlcal asslsLance and servlces
and charlLable granLs
33

uurlng Lhe perlod of commlLLee amendmenLs Lhe CommlLLee on SocloLconomlc
lannlng and uevelopmenL Lhrough Assemblyman 8onaldo 8 Zamora lnLroduced
an amendmenL by subsLlLuLlon Lo Lhe sald paragraph 8 such LhaL as amended lL
should read as follows
Sub[ecL Lo Lhe approval of Lhe MlnlsLer of Puman SeLLlemenLs Lo engage ln healLh
orlenLed lnvesLmenLs programs pro[ecLs and acLlvlLles whlch may be proflL
orlenLed by lLself or ln collaboraLlon assoclaLlon or [olnL venLure wlLh any person
assoclaLlon company or enLlLy wheLher domesLlc or forelgn for Lhe purpose of
provldlng for permanenL and conLlnulng sources of funds for healLh programs
lncludlng Lhe expanslon of exlsLlng ones medlcal asslsLance and servlces and/or
charlLable granLs
36

8efore Lhe moLlon of Assemblyman Zamora for Lhe approval of Lhe amendmenL
could be acLed upon Assemblyman uavlde lnLroduced an amendmenL Lo Lhe
amendmenL
M8 uAvluL
Mr Speaker
1PL SLAkL8
131

1he genLleman from Cebu ls recognlzed
M8 uAvluL
May l lnLroduce an amendmenL Lo Lhe commlLLee amendmenL? 1he amendmenL
would be Lo lnserL afLer forelgn ln Lhe amendmenL [usL read Lhe followlng LxCL1
lC8 1PL AC1lvl1? ln LL11L8 (A) A8CvL
wbeo lt ls jolot veotote ot lo collobototloo wltb ooy eotlty socb collobototloo ot jolot
veotote most oot locloJe octlvlty octlvlty lettet (o) wblcb ls tbe bolJloq ooJ
cooJoctloq of sweepstokes toces lottetles ooJ otbet slmllot octs
M8 ZAMC8A
We accepL Lhe amendmenL Mr Speaker
M8 uAvluL
1hank you Mr Speaker
1PL SLAkL8
ls Lhere any ob[ecLlon Lo Lhe amendmenL? (Sllence) 1he amendmenL as amended
ls approved
37

lurLher amendmenLs Lo paragraph 8 were lnLroduced and approved When
Assemblyman Zamora read Lhe flnal LexL of paragraph 8 as furLher amended Lhe
earller approved amendmenL of Assemblyman uavlde became LxCL1 lC8 1PL
AC1lvl1lLS MLn1lCnLu ln A8AC8AP (A) and by vlrLue of Lhe amendmenL
lnLroduced by Assemblyman Lmmanuel elaez Lhe word 8LCLulnC was lnserLed
before A8AC8AP Assemblyman elaez lnLroduced oLher amendmenLs
1hereafLer Lhe new paragraph 8 was approved
38

1hls ls now paragraph 8 SecLlon 1 of 8A no 1169 as amended by 8 8lg 42
no lnLerpreLaLlon of Lhe sald provlslon Lo relax or clrcumvenL Lhe prohlblLlon can be
allowed slnce Lhe prlvllege Lo hold or conducL charlLy sweepsLakes races loLLerles
or oLher slmllar acLlvlLles ls a franchlse granLed by Lhe leglslaLure Lo Lhe CSC lL ls a
seLLled rule LhaL ln all granLs by Lhe governmenL Lo lndlvlduals or corporaLlons of
rlghLs prlvlleges and franchlses Lhe words are Lo be Laken mosL sLrongly agalnsL
Lhe granLee one who clalms a franchlse or prlvllege ln derogaLlon of Lhe
common rlghLs of Lhe publlc musL prove hls LlLle LhereLo by a granL whlch ls clearly
and deflnlLely expressed and he cannoL enlarge lL by equlvocal or doubLful
provlslons or by probable lnferences WhaLever ls noL unequlvocally granLed ls
wlLhheld noLhlng passes by mere lmpllcaLlon
39

ln shorL Lhen by Lhe excepLlon expllclLly made ln paragraph 8 SecLlon 1 of lLs
charLer Lhe CSC cannoL share lLs franchlse wlLh anoLher by way of collaboraLlon
assoclaLlon or [olnL venLure nelLher can lL asslgn Lransfer or lease such franchlse
lL has been sald LhaL Lhe rlghLs and prlvlleges conferred under a franchlse may
wlLhouL doubL be asslgned or Lransferred when Lhe granL ls Lo Lhe granLee and
asslgns or ls auLhorlzed by sLaLuLe Cn Lhe oLher hand Lhe rlghL of Lransfer or
asslgnmenL may be resLrlcLed by sLaLuLe or Lhe consLlLuLlon or be made sub[ecL Lo
Lhe approval of Lhe granLor or a governmenLal agency such as a publlc uLlllLles
commlsslon excepLlon LhaL an exlsLlng rlghL of asslgnmenL cannoL be lmpalred by
subsequenL leglslaLlon
60

lL may also be polnLed ouL LhaL Lhe franchlse granLed Lo Lhe CSC Lo hold and
conducL loLLerles allows lL Lo hold and conducL a specles of gambllng lL ls seLLled
LhaL a sLaLuLe whlch auLhorlzes Lhe carrylng on of a gambllng acLlvlLy or buslness
should be sLrlcLly consLrued and every reasonable doubL so resolved as Lo llmlL Lhe
powers and rlghLs clalmed under lLs auLhorlLy
61

uoes Lhe challenged ConLracL of Lease vlolaLe or conLravene Lhe excepLlon ln
SecLlon 1 of 8A no 1169 as amended by 8 8lg 42 whlch prohlblLs Lhe CSC
from holdlng and conducLlng loLLerles ln collaboraLlon assoclaLlon or [olnL venLure
wlLh anoLher?
We agree wlLh Lhe peLlLloners LhaL lL does noLwlLhsLandlng lLs denomlnaLlon or
deslgnaLlon as a (coottoct of leose) We are nelLher convlnced nor moved or fazed
by Lhe lnslsLence and forceful argumenLs of Lhe CMC LhaL lL does noL because ln
reallLy lL ls only an lndependenL conLracLor for a plece of work le Lhe bulldlng and
malnLenance of a loLLery sysLem Lo be used by Lhe CSC ln Lhe operaLlon of lLs
loLLery franchlse WheLher Lhe conLracL ln quesLlon ls one of lease or wheLher Lhe
CMC ls merely an lndependenL conLracLor should noL be declded on Lhe basls of
Lhe LlLle or deslgnaLlon of Lhe conLracL buL by Lhe lnLenL of Lhe parLles whlch may
be gaLhered from Lhe provlslons of Lhe conLracL lLself Aolmos bomlols est oolmo
sctlptl 1he lnLenLlon of Lhe parLy ls Lhe soul of Lhe lnsLrumenL ln order Lo glve llfe
or effecL Lo an lnsLrumenL lL ls essenLlal Lo look Lo Lhe lnLenLlon of Lhe lndlvldual
who execuLed lL
62
And pursuanL Lo ArLlcle 1371 of Lhe Clvll Code Lo deLermlne
Lhe lnLenLlon of Lhe conLracLlng parLles Lhelr conLemporaneous and subsequenL
acLs shall be prlnclpally consldered 1o puL lL more blunLly no one should be
decelved by Lhe LlLle or deslgnaLlon of a conLracL
A careful analysls and evaluaLlon of Lhe provlslons of Lhe conLracL and a
conslderaLlon of Lhe conLemporaneous acLs of Lhe CSC and CMC lndublLably
dlsclose LhaL Lhe conLracL ls noL ln reallLy a conLracL of lease under whlch Lhe CMC
ls merely an lndependenL conLracLor for a plece of work buL one where Lhe
sLaLuLorlly proscrlbedcollobototloo or ossoclotloo ln Lhe leasL or jolot veotote aL
Lhe mosL exlsLs beLween Lhe conLracLlng parLlescollobototloo ls deflned as Lhe acLs
of worklng LogeLher ln a [olnL pro[ecL
63
Assoclotloo means Lhe acL of a number of
persons ln unlLlng LogeLher for some speclal purpose or buslness
64
Iolot veotote ls
deflned as an assoclaLlon of persons or companles [olnLly underLaklng some
commerclal enLerprlse generally all conLrlbuLe asseLs and share rlsks lL requlres a
communlLy of lnLeresL ln Lhe performance of Lhe sub[ecL maLLer a rlghL Lo dlrecL
and govern Lhe pollcy ln connecLlon LherewlLh and duLy whlch may be alLered by
agreemenL Lo share boLh ln proflL and
losses
63

1he conLemporaneous acLs of Lhe CSC and Lhe CMC reveal LhaL Lhe CSC had
nelLher funds of lLs own nor Lhe experLlse Lo operaLe and manage an onllne loLLery
132

sysLem and LhaL alLhough lL wlshed Lo have Lhe sysLem lL would have lL aL no
expense or rlsks Lo Lhe governmenL 8ecause of Lhese serlous consLralnLs and
unwllllngness Lo bear expenses and assume rlsks Lhe CSC was candld enough Lo
sLaLe ln lLs 8l LhaL lL ls seeklng for a sulLable conLracLor whlch shall bulld aL lLs
own expense all Lhe faclllLles needed Lo operaLe and malnLaln Lhe sysLem
excluslvely bear all caplLal operaLlng expenses and expanslon expenses and rlsks
and submlL a comprehenslve naLlonwlde loLLery developmenL plan whlch wlll
lnclude Lhe game Lhe markeLlng of Lhe games and Lhe loglsLlcs Lo lnLroduce Lhe
game Lo all Lhe clLles and munlclpallLles of Lhe counLry wlLhln flve (3) years and
LhaL Lhe operaLlon of Lhe onllne loLLery sysLem should be aL no expense or rlsk Lo
Lhe governmenL meanlngltself slnce lL ls a governmenLowned and conLrolled
agency 1he focllltles referred Lo means all caplLal equlpmenL compuLers
Lermlnals sofLware naLlonwlde LelecommunlcaLlons neLwork LlckeL sales offlces
furnlshlngs and flxLures prlnLlng cosLs cosLs of salarles and wages adverLlslng and
promoLlons expenses malnLenance cosLs expanslon and replacemenL cosLs
securlLy and lnsurance and all oLher relaLed expenses needed Lo operaLe a
naLlonwlde onllne loLLery sysLem
ln shorL Lhe only conLrlbuLlon Lhe CSC would have ls lLs franchlse or auLhorlLy Lo
operaLe Lhe onllne loLLery sysLem wlLh Lhe resL lncludlng Lhe tlsks of Lhe buslness
belng borne by Lhe proponenL or bldder lL could be for Lhls reason LhaL lL warned
LhaL Lhe proponenL musL be able Lo sLand Lo Lhe acld LesL of provlng LhaL lL ls an
enLlLy able Lo Lake oo tbe tole of tespooslble molotoloet of tbe oolloe lottety
system 1he CSC however makes lL clear ln lLs 8l LhaL Lhe proponenL can
propose a perlod of Lhe conLracL whlch shall noL exceed flfLeen years durlng whlch
Llme lL ls assured of a renLal whlch shall noL exceed 12 of gross recelpLs As
admlLLed by Lhe CMC upon learnlng of Lhe CSCs declslon Lhe 8er[aya Croup
8erhad wlLh lLs afflllaLes wanLed Lo offer lLssetvlces ooJ tesootces Lo Lhe CSC
lorLhwlLh lL organlzed Lhe CMC as a medlum Lhrough whlch Lhe tecbolcol ooJ
moooqemeot servlces requlred for Lhe pro[ecL would be offered and dellvered Lo
CSC
66

undoubLedly Lhen Lhe 8er[aya Croup 8erhad knew all along LhaL ln connecLlon
wlLh an onllne loLLery sysLem Lhe CSC had noLhlng buL lLs franchlse whlch lL
solemnly guaranLeed lL had ln Lhe Ceneral lnformaLlon of Lhe 8l
67
Powsoever
vlewed Lhen from Lhe very lncepLlon Lhe CSC and Lhe CMC muLually undersLood
LhaL any arrangemenL beLween Lhem would necessarlly leave Lo Lhe CMC
Lhe tecbolcol opetotloos ooJ moooqemeotaspecLs of Lhe onllne loLLery sysLem
whlle Lhe CSC would prlmarlly provlde Lhe franchlse 1he
words Comloqand Moooqemeot ln Lhe corporaLe name of respondenL hlllpplne
Camlng ManagemenL CorporaLlon could noL have been concelved [usL for
euphemlsLlc purposes Cf course Lhe 8l cannoL subsLlLuLe for Lhe ConLracL of
Lease whlch was subsequenLly execuLed by Lhe CSC and Lhe CMC neverLheless
Lhe ConLracL of Lease lncorporaLes Lhelr lnLenLlon and undersLandlng
1he socalled ConLracL of Lease ls noL Lherefore whaL lL purporLs Lo be lLs
denomlnaLlon as such ls a crafLy devlce carefully concelved Lo provlde a bullLln
defense ln Lhe evenL LhaL Lhe agreemenL ls quesLloned as vlolaLlve of Lhe excepLlon
ln SecLlon 1 (8) of Lhe CSCs charLer 1he aculLy or sklll of lLs drafLsmen Lo
accompllsh LhaL purpose easlly manlfesLs lLself ln Lhe ConLracL of Lease lL ls
ouLsLandlng for lLs careful and meLlculous drafLlng deslgned Lo glve an lmmedlaLe
lmpresslon LhaL lL ls a conLracL of lease ?eL woven Lhereln are provlslons whlch
negaLe lLs LlLle and beLray Lhe Lrue lnLenLlon of Lhe parLles Lo be ln or Lo have a jolot
veotote for a perlod of elghL years ln Lhe operaLlon and malnLenance of Lhe onllne
loLLery sysLem
ConslsLenL wlLh Lhe above observaLlons on Lhe 8l Lhe CSC has only lLs franchlse
Lo offer whlle Lhe CMC represenLs and warranLs LhaL lL has access to oll
moooqetlol ooJ tecbolcol expettlse Lo prompLly and effecLlvely carry ouL Lhe Lerms
of Lhe conLracL And for a perlod of elghL years Lhe CMC ls under obllgaLlon Lo
keep all Lhelocllltles ln safe condlLlon and lf necessary upgrade replace and
lmprove Lhem from Llme Lo Llme as new Lechnology develops Lo make Lhe onllne
loLLery sysLem more cosLeffecLlve and compeLlLlve excluslvely bear all cosLs and
expenses relaLlng Lo Lhe prlnLlng manpower salarles and wages adverLlslng and
promoLlon malnLenance expanslon and replacemenL securlLy and lnsurance and
all oLher relaLed expenses needed Lo operaLe Lhe onllne loLLery sysLem underLake
a poslLlve adverLlslng and promoLlons campalgn for boLh lnsLlLuLlonal and producL
llnes wlLhouL engaglng ln negaLlve adverLlslng agalnsL oLher lessors bear Lhe
salarles and relaLed cosLs of skllled and quallfled personnel for oJmlolsttotlve ooJ
tecbolcol operaLlons comply wlLh ptoceJotol ooJ cootJlootloq toles lssued by Lhe
CSC and Lo Lraln CSC and oLher local personnel and Lo effecL Lhe Lransfer of
Lechnology and oLher experLlse such LhaL aL Lhe end of Lhe Lerm of Lhe conLracL
Lhe CSC wlll be able Lo effecLlvely Lake over Lhe laclllLles and efflclenLly operaLe
Lhe onllne loLLery sysLem 1he laLLer slmply means LhaL lndeed Lhe managers
Lechnlclans or employees who shall operaLe Lhe onllne loLLery sysLem are noL
managers Lechnlclans or employees of Lhe CSC buL of Lhe CMC and LhaL lL ls
only afLer Lhe explraLlon of Lhe conLracL LhaL Lhe CSC wlll operaLe Lhe sysLem
AfLer elghL years Lhe CSC would auLomaLlcally become Lhe owner of Lhe laclllLles
wlLhouL any oLher furLher conslderaLlon
lor Lhese reasons Loo Lhe CMC has Lhe lnlLlal prerogaLlve Lo prepare Lhe deLalled
plan of all games and Lhe markeLlng Lhereof and deLermlne Lhe number of players
value of wlnnlngs and Lhe loglsLlcs requlred Lo lnLroduce Lhe games lncludlng Lhe
MasLer Cames lan Cf course Lhe CSC has Lhe reserved auLhorlLy Lo dlsapprove
Lhem
68
And whlle Lhe CSC has Lhe sole responslblllLy over Lhe appolnLmenL of
dealers and reLallers LhroughouL Lhe counLry Lhe CMC may neverLheless
recommend for appolnLmenL dealers and reLallers whlch shall be acLed upon by Lhe
CSC wlLhln forLyelghL hours and collecL and reLaln for lLs own accounL a securlLy
deposlL from dealers and reLallers ln respecL of equlpmenL supplled by lL
133

1hls [olnL venLure ls furLher esLabllshed by Lhe followlng
(a) 8enL ls deflned ln Lhe lease conLracL as Lhe amounL Lo be pald Lo Lhe CMC as
compensaLlon for Lhe fulflllmenL of lLs obllgaLlons under Lhe conLracL locloJloq bot
oot llmlteJ Lo Lhe lease of Lhe laclllLles Powever Lhls teot ls noL acLually a flxed
amounL AlLhough lL ls sLaLed Lo be 49 of gross recelpLs from LlckeL sales payable
neL of Laxes requlred by law Lo be wlLhheld lL may be drasLlcally reduced or ln
exLreme cases noLhlng may be due or demandable aL all because Lhe CMC blnds
lLself Lo bear all rlsks lf Lhe revenue from Lhe LlckeL sales on an annuallzed basls
are lnsufflclenL Lo pay Lhe enLlre prlze money 1hls rlskbearlng provlslon ls unusual
ln a lessorlessee relaLlonshlp buL lnherenL ln a [olnL venLure
(b) ln Lhe evenL of preLermlnaLlon of Lhe conLracL by Lhe CSC or lLs suspenslon of
operaLlon of Lhe onllne loLLery sysLem ln breach of Lhe conLracL and Lhrough no
faulL of Lhe CMC Lhe CSC blnds lLself Lo prompLly and ln any evenL noL laLer
Lhan slxLy (60) days relmburse Lhe Lessor Lhe amounL of lLs LoLal lnvesLmenL cosL
assoclaLed wlLh Lhe CnLlne LoLLery SysLem lncludlng buL noL llmlLed Lo Lhe cosL of
Lhe laclllLles and furLher compensaLe Lhe LLSSC8 for loss of expecLed neL proflL
afLer Lax compuLed over Lhe unexplred Lerm of Lhe lease lf Lhe conLracL were
lndeed one of lease Lhe paymenL of Lhe expecLed proflLs or renLals for Lhe
unexplred porLlon of Lhe Lerm of Lhe conLracL would be enough
(c) 1he CMC cannoL dlrecLly or lndlrecLly underLake any acLlvlLy or buslness ln
compeLlLlon wlLh or adverse Lo Lhe CnLlne LoLLery SysLem of CSC unless lL obLalns
Lhe laLLers prlor wrlLLen consenL lf Lhe CMC ls engaged ln Lhe buslness of leaslng
equlpmenL and Lechnology for an onllne loLLery sysLem we fall Lo see any
accepLable reason why lL should allow a resLrlcLlon on Lhe pursulL of such buslness
(d) 1he CMC shall provlde Lhe CSC Lhe audlLed Annual 8eporL senL Lo lLs
sLockholders and wlLhln Lwo years from Lhe effecLlvlLy of Lhe conLracL cause lLself
Lo be llsLed ln Lhe local sLock exchange and offer aL leasL 23 of lLs equlLy Lo Lhe
publlc lf Lhe CMC ls merely a lessor Lhls lmposlLlon ls unreasonable and
whlmslcal and could only be Lled up Lo Lhe facL LhaL Lhe CMC wlll acLually operaLe
and manage Lhe sysLem hence lncreaslng publlc parLlclpaLlon ln Lhe corporaLlon
would enhance publlc lnLeresL
(e) 1he CMC shall puL up an Lscrow ueposlL of 30000000000 pursuanL Lo Lhe
requlremenLs of Lhe 8l whlch lL may aL lLs opLlon malnLaln as lLs lnlLlal
performance bond requlred Lo ensure lLs falLhful compllance wlLh Lhe Lerms of Lhe
conLracL
(f) 1he CSC shall deslgnaLe Lhe necessary personnel Lo monlLor and audlL Lhe dally
performance of Lhe onllne loLLery sysLem and promulgaLe ptoceJotol ooJ
cootJlootloq toles governlng all acLlvlLles relaLlng Lo Lhe onllne loLLery sysLem 1he
flrsL furLher conflrms LhaL lL ls Lhe CMC whlch wlll operaLe Lhe sysLem and Lhe
CSC may for Lhe proLecLlon of lLs lnLeresL monlLor and audlL Lhe dally
performance of Lhe sysLem 1he second admlLs
LhecootJlootloq and coopetotlve powers and funcLlons of Lhe parLles
(g) 1he CSC may valldly LermlnaLe Lhe conLracL lf Lhe CMC becomes lnsolvenL or
bankrupL or ls unable Lo pay lLs debLs or lf lL sLops or suspends or LhreaLens Lo sLop
or suspend paymenL of all or a maLerlal parL of lLs debLs
All of Lhe foregolng unmlsLakably conflrm Lhe lndlspensable role of Lhe CMC ln Lhe
pursulL operaLlon conducL and managemenL of Lhe CnLlne LoLLery SysLem 1hey
exhlblL and demonsLraLe Lhe parLles lndlvlslble communlLy of lnLeresL ln Lhe
concepLlon blrLh and growLh of Lhe onllne loLLery and above all ln lLs proflLs
wlLh each havlng a rlghL ln Lhe formulaLlon and lmplemenLaLlon of pollcles relaLed
Lo Lhe buslness and sharlng as well ln Lhe losses wlLh Lhe CMC bearlng Lhe
greaLesL burden because of lLs assumpLlon of expenses and rlsks and Lhe CSC Lhe
leasL because of lLs confessed unwllllngness Lo bear expenses and rlsks ln a
manner of speaklng each ls wed Lo Lhe oLher for beLLer or for worse ln Lhe flnal
analysls however ln Lhe llghL of Lhe CSCs 8l and Lhe above hlghllghLed
provlslons as well as Lhe Pold Parmless Clause of Lhe ConLracL of Lease lL ls even
safe Lo conclude LhaL Lhe acLual lessot ln Lhls case ls Lhe CSC and Lhe sub[ecL
maLLer Lhereof ls lLs franchlse Lo hold and conducL loLLerles slnce lL ls ln reallLy Lhe
CMC whlch operaLes and manages Lhe onllne loLLery sysLem for a perlod of elghL
years
We Lhus declare LhaL Lhe challenged ConLracL of Lease vlolaLes Lhe excepLlon
provlded for ln paragraph 8 SecLlon 1 of 8A no 1169 as amended by 8 8lg 42
and ls Lherefore lnvalld for belng conLrary Lo law 1hls concluslon renders
unnecessary furLher dlscusslon on Lhe oLher lssues ralsed by Lhe peLlLloners
WPL8LlC8L Lhe lnsLanL peLlLlon ls hereby C8An1Lu and Lhe challenged ConLracL
of Lease execuLed on 17 uecember 1993 by respondenL hlllpplne CharlLy
SweepsLakes Cfflce (CSC) and respondenL hlllpplne Camlng ManagemenL
CorporaLlon (CMC) ls hereby uLCLA8Lu conLrary Lo law and lnvalld
1he 1emporary 8esLralnlng Crder lssued on 11 Aprll 1994 ls hereby MAuL
L8MAnLn1
no pronouncemenL as Lo cosLs
SC C8uL8Lu

AM No 918374CM8 November 28 1994
1S1 LNDCkSLMLN1 DA1LD IUNL 3 1991 CI A11 DANILC CUNANAN ead
Lxecut|ve Ass|stant Cff|ce of the CM8UDSMAN
k L S C L U 1 I C N

MLLC I
1he admlnlsLraLlve case before us sLemmed from Lhe unswornleLLer complalnL
daLed May 13 1991 of Ms Lsperanza l Choy agalnsL 8odrlgo Saure Sherlff lll
8eglonal 1rlal CourL Cfflce of Lhe Clerk of CourL kalookan ClLy for derellcLlon of
duLy relaLlve Lo Lhe lmplemenLaLlon of Lhe wrlL of execuLlon lssued ln Clvll Case no
931 enLlLled Lsperanza l Choy vs nlla valencla for CollecLlon of Sum of Money
134

1he sald unsworn leLLercomplalnL was orlglnally flled wlLh Lhe Cfflce of Lhe
Cmbudsman buL was referred Lo Lhls CourL for approprlaLe acLlon by ALLy uanllo
Cunanan Pead LxecuLlve AsslsLanL
ComplalnanL Lhe plalnLlff ln Lhe aforeclLed case alleges LhaL on !anuary 31 1991
!udge nllo 8arsaga M1C MasbaLe MasbaLe lssued an order for Lhe lssuance of a
wrlL of execuLlon upon nlla valencla and dlrecLed Lhe ClLy Sherlff of kalookan or any
auLhorlzed depuLles Lo serve Lhe same Lo saLlsfy a [udgmenL for 240000
8espondenL Saure was Lhe one deslgnaLed Lo enforce Lhe wrlL
ComplalnanL clalms LhaL lL was aL her lnsLance LhaL Lhe wrlL of execuLlon was served
by respondenL upon defendanL nlla valencla aL her resldence aL
LoL 3 8lock 4 uon epe SLreeL La 1rlnldad Subdlvlslon 1ene[eros Malabon
AlLhough respondenL sherlff levled upon some of Lhe defendanLs personal properLy
and scheduled Lhe aucLlon sale on March 11 1991 he dld noL however Lake
physlcal possesslon of Lhe properLy levled upon 1he aucLlon sale dld noL
maLerlallze because hereln complalnanL was noL avallable A second aucLlon sale
was scheduled on Aprll 23 1991 buL dld noL push Lhrough because Lhe defendanL
was noL around and her house was padlocked
lL ls Lhe conLenLlon of complalnanL LhaL had respondenL Laken physlcal possesslon
of Lhe levled personal properLy Lhe [udgmenL would have been saLlsfled
ComplalnanL relLeraLed Lhe foregolng allegaLlons ln her sworn complalnL submlLLed
Lo Lhls CourL on CcLober 14 1991 ln compllance wlLh Lhe 8esoluLlon of Lhe CourL
daLed SepLember 3 1991
ln hls CommenL daLed SepLember 30 1994 respondenL sherlff ln sum alleges LhaL
1 upon recelpL of Lhe wrlL of execuLlon lssued ln Clvll Case no 931 LogeLher wlLh
Lhe complalnanL he proceeded Lo Lhe resldence of Lhe defendanL 1here Lhey were
allegedly lnformed LhaL Lhe defendanL was noL presenL due Lo her work ln MasbaLe
Conslderlng LhaL Lhe defendanLs son !oel valencla was Lhere and he was of
sufflclenL age and dlscreLlon he (respondenL) explalned Lo !oel Lhe obllgaLlons of
her moLher and served upon hlm a copy of Lhe WrlL of LxecuLlon noLlce of Levy
and Sherlffs Sale on Lhe properLy found lnslde Lhelr house
2 1he sale was scheduled for March 11 1991 Lo glve sufflclenL Llme Lo Lhe
defendanL Lo be noLlfled and Lo appear durlng Lhe publlc aucLlon
3 AL Lhe scheduled sale complalnanL was absenL desplLe noLlce Lo her and ln vlew
Lhereof Lhe aucLlon sale was posLponed
4 Cn Aprll 17 1991 complalnanL lnformed hlm (respondenL) LhaL Lhere ls no way
of recovery and/or seLLlemenL of paymenL as she (complalnanL) herself falled Lo
conLacL defendanL ln MasbaLe ConsequenLly respondenL and complalnanL
proceeded agaln Lo Lhe defendanLs resldence and rescheduled Lhe publlc aucLlon
sale Lo Aprll 23 1991 aL 10 oclock ln Lhe mornlng and ln Lhe same address
(referrlng Lo Lhe resldence of defendanL) 1he respondenL llkewlse lnformed !oel of
Lhe rescheduled aucLlon sale
3 AL Lhe rescheduled aucLlon sale whereln barangay and pollce asslsLance was
soughL Lhey were surprlsed Lo flnd Lhe house of Lhe defendanL unoccupled and
padlocked nelghbors of Lhe defendanL gave Lhe lnformaLlon LhaL Lhe defendanL
was sLlll ln Lhe provlnce and her chlldren were ln school
6 AfLer flndlng lL dlfflculL Lo locaLe Lhe whereabouLs of Lhe defendanL respondenL
declded Lo look for anoLher properLy and came up wlLh a plece of real properLy
whlch ls however morLgaged wlLh Lhe uevelopmenL 8ank of Lhe hlllpplnes
7 1hereafLer respondenL explalned Lo complalnanL Lhe procedures on Lhe sale of
real esLaLe properLy whlch requlres publlcaLlon greaLly dlsappolnLlng ln Lhe
process complalnanL
8 Cn Aprll 26 1991 a Sherlffs 8eporL/8eLurn was submlLLed Lo Lhe M1C MasbaLe
for record and lnformaLlon purposes
1he case was Lhen referred Lo Lhe Cfflce of Lhe CourL AdmlnlsLraLor for evaluaLlon
reporL and recommendaLlon
ln hls reporL daLed november 26 1994 uepuLy CourL AdmlnlsLraLor 8eynaldo
Suarez came up wlLh Lhe followlng flndlngs and recommendaLlon
8ule 39 SecLlon 13 of Lhe 8evlsed 8ules of CourL provldes LhaL
Sec 13 xecotloo of mooey joJqmeots 1he offlcer musL enforce an execuLlon of
a money [udgmenL by levylng on all Lhe properLy real and personal of every name
and naLure whaLsoever and whlch may be dlsposed of for value of Lhe [udgmenL
debLor noL exempL from execuLlon or on a sufflclenL amounL of such properLy lf
Lhere be sufflclenL and selllng Lhe same and paylng Lo Lhe [udgmenL credlLor or hls
aLLorney so much of Lhe proceeds as wlll saLlsfy Lhe [udgmenL Any excess ln Lhe
proceeds over Lhe [udgmenL and accrulng cosLs musL be dellvered Lo Lhe [udgmenL
debLor unless oLherwlse dlrecLed by Lhe [udgmenL or order of Lhe courL When
Lhere ls more properLy of Lhe [udgmenL debLor Lhan ls sufflclenL Lo saLlsfy Lhe
[udgmenL and accrulng cosLs wlLhln Lhe vlew of Lhe offlcer he musL levy only on
such parL of Lhe properLy as ls amply sufflclenL Lo saLlsfy Lhe [udgmenL and cosLs
8eal properLy sLocks shares debLs credlLs and oLher personal properLy or any
lnLeresL ln elLher real or personal properLy may be levled on ln llke manner and
wlLh llke effecL as under a wrlL of aLLachmenL
under Lhe aforesald rule before Lhe properLy may be sold on execuLlon lL musL be
levled on 1he levy ls lndlspensable Lo Lhe valldlLy of Lhe execuLlon sale 1here can
be no valld sale wlLhouL a valld levy (Llenares vs valdeavelle 46 hll 338) Levy ls ln
Lhe naLure of an aLLachmenL provlded ln 8ule 37
1hus lL ls very clear ln Lhe case aL bar LhaL respondenL Sherlff ls llable as charged
Whlle lL ls Lrue Lhere has been a noLlce of levy and Sherlffs sale Lhe personal
properLles so llsLed remalned ln Lhe possesslon of Lhe defendanLs and were never
pulled ouL even afLer lL was scheduled Lwlce for publlc aucLlon
AdmlLLed llkewlse ls Lhe facL LhaL respondenL submlLLed a Sherlffs 8eporL daLed
Aprll 26 1991 1he sald reLurn has sLaLed among oLhers LhaL he has already
conducLed a levy on some of Lhe personal properLles of defendanL buL Lhe
133

scheduled sale (Lwlce) dld noL maLerlallze flrsL due Lo Lhe absence of Lhe
complalnanL and secondly due Lo Lhe facL LhaL Lhe house of Lhe defendanL was
padlocked and Lhe properLles are lnslde 1haL ln lLself shows LhaL defendanL falled
Lo Lake cusLody of Lhe personal properLles whlch were levled pursuanL Lo Lhe wrlL of
execuLlon lssued by !udge nllo 8 8arsaga 8espondenL was Lherefore remlss ln Lhe
performance of hls duLy for havlng falled Lo Lake cusLody over Lhe levled properLles
1hls ls a serlous breach on Lhe parL of Lhe Sherlff and he should be meLed a sLener
penalLy Slnce however Lhls ls Lhe flrsL complalnL ever flled agalnsL respondenL ln
hls long years of servlce wlLh Lhe CourL a llghL penalLy of a llnL of llvL 1PCuSAnu
LSCS (300000) ls commensuraLe Lo Lhe gravlLy of Lhe offense
1he CourL agrees wlLh Lhe foregolng flndlngs 1he sherlff ls a courL offlcer prlmarlly
responslble for Lhe speedy and efflclenL servlce of all courL processes and wrlLs
orlglnaLlng from hls courL and Lhe branches Lhereof and Lhose LhaL may be
delegaLed Lo hlm from oLher courLs
As such offlcer whose duLles form an lnLegral parL of Lhe admlnlsLraLlon of [usLlce a
sherlff and hls depuLles may be properly dlsmlssed or suspended from offlce by Lhls
Lrlbunal whlch exerclses admlnlsLraLlve supervlslon over Lhe [udlclal branch of Lhe
governmenL for acLlon commlLLed ln vlolaLlon of 8ules of CourL and whlch lmpedes
and deLracLs from a falr and [usL admlnlsLraLlon of [usLlce (PlpollLo vs Mergas 193
SC8A 6 1991) 1he CourL cannoL oversLress Lhe need for clrcumspecLlon and
proper behavlor on Lhe parL of a sherlff an offlcer of Lhe courL upon whom Lhe
execuLlon of a flnal [udgmenL depends lL ls sald LhaL execuLlon ls Lhe frulL and end
of Lhe sulL and ls very apLly called Lhe llfe of Lhe law (1an vs Perras 193 SC8A 1
1991 AL vs CourL of Appeals 181 SC8A 337 1990) lL ls lndlspuLable LhaL Lhe
mosL dlfflculL phase of any proceedlng ls Lhe execuLlon of [udgmenL Pence Lhe
offlcers charged wlLh Lhls dellcaLe Lask musL ln Lhe absence of a resLralnlng order
acL wlLh conslderable dlspaLch so as noL Lo unduly delay Lhe admlnlsLraLlon of
[usLlce oLherwlse Lhe declslon orders or oLher processes of Lhe courLs of [usLlce
would be fuLlle (ascual vs uuncan 216 SC8A 786 1992)
1hls CourL had sald before and now relLeraLes lL here LhaL Lhe conducL and
behavlor of every one connecLed wlLh an offlce charged wlLh Lhe dlspensaLlon of
[usLlce from Lhe hlghesL maglsLraLe Lo Lhe lowesL clerk should be clrcumscrlbed
wlLh Lhe heavy burden of responslblllLy 8espondenL sherlffs acLuaLlons ln Lhe
enforcemenL of Lhe wrlL of execuLlon ln Clvll Case no 931 dld noL llve up Lo Lhls
sLrlcL sLandard 1he recommended flne ln Lhe amounL of 300000 however
appears a blL Loo much conslderlng LhaL Lhe [udgmenL credlL ln favor of complalnanL
ls only for 240000
ACCC8ulnCL? a flne of 1WC 1PCuSAnu LSCS (200000) ls hereby lmposed on
respondenL sherlff 8odrlgo Saure payable wlLhln LhlrLy (30) days from noLlce
8espondenL ls hereby warned LhaL a repeLlLlon of Lhe same or of any acL calllng for
dlsclpllnary acLlon wlll be dealL wlLh more severely
SC C8uL8Lu
C8 no 81310 March 14 1990
PC81LnClA SALAZA8 peLlLloner
vs
PCn 1CMAS u ACPACCSC ln hls capaclLy as AdmlnlsLraLor of Lhe hlllpplne
Cverseas LmploymenL AdmlnlsLraLlon and lL8ulL MA8CuLZ respondenLs
Cotlettez Alo low Offlces fot petltlooet

SA8MlLn1C I
1hls concerns Lhe valldlLy of Lhe power of Lhe SecreLary of Labor Lo lssue warranLs
of arresL and selzure under ArLlcle 38 of Lhe Labor Code prohlblLlng lllegal
recrulLmenL
1he facLs are as follows
xxx xxx xxx
1 Cn CcLober 21 1987 8osalle 1esoro of 177 1upaz SLreeL Leverlza asay ClLy ln
a sworn sLaLemenL flled wlLh Lhe hlllpplne Cverseas LmploymenL AdmlnlsLraLlon
(CLA for brevlLy) charged peLlLloner PorLencla Salazar vlz
04 1 Ano ba ang dahllan aL lkaw ngayon ay narlLo aL
nagblblgay ng salaysay
S upang lreklamo sa dahllan ang aklng LCC Card ay
ayaw lblgay sa akln ng daLl kong manager PorLy
Salazar 613 8C SanLos Mandaluyong Mla
03 1 kallan aL saan naganap and glnawang panloloko sa
lyo ng Lao/mga Laong lnlreklamo mo?
S Sa bahay nl PorLy Salazar
06 1 aano naman naganap ang pangyayarl?
S agkagallng ko sa !apan lplnaLawag nlya ako klnuha
ang LCC Card ko aL slnablng hahanapan ako ng
booklng sa !apan Mag 9 monLhs na ako sa hlls ay
hlndl pa nlya ako napaalls So lumlpaL ako ng lbang
company pero ayaw nlyang lblgay and LCC Card
ko
2 Cn november 3 1987 publlc respondenL ALLy lerdlnand Marquez Lo whom sald
complalnL was asslgned senL Lo Lhe peLlLloner Lhe followlng Lelegram
?Cu A8L PL8L8? ul8LC1Lu 1C ALA8 8LlC8L lL8ulL MA8CuLZ CLA An1l
lLLLCAL 8LC8ul1MLn1 unl1 61P lL8 CLA 8LuC LuSA CC8 C81lCAS AvL
MAnuALu?CnC MM Cn nCvLM8L8 6 1987 A1 10 AM 8L CASL llLLu ACAlnS1
?Cu lAlL nC1 unuL8 LnAL1? Cl LAW
4 Cn Lhe same day havlng ascerLalned LhaL Lhe peLlLloner had no llcense Lo
operaLe a recrulLmenL agency publlc respondenL AdmlnlsLraLor 1omas u Achacoso
lssued hls challenged CLCSu8L Anu SLlZu8L C8uL8 nC 1203 whlch reads
136

PC81? SALAZA8
no 613 8C SanLos SL
Mandaluyong MeLro Manlla
ursuanL Lo Lhe powers vesLed ln me under resldenLlal uecree no 1920 and
LxecuLlve Crder no 1022 l hereby order Lhe CLCSu8L of your recrulLmenL agency
belng operaLed aL no 613 8C SanLos SL Mandaluyong MeLro Manlla and Lhe
selzure of Lhe documenLs and paraphernalla belng used or lnLended Lo be used as
Lhe means of commlLLlng lllegal recrulLmenL lL havlng verlfled LhaL you have
(1) no valld llcense or auLhorlLy from Lhe ueparLmenL of Labor and LmploymenL Lo
recrulL and deploy workers for overseas employmenL
(2) CommlLLed/are commlLLlng acLs prohlblLed under ArLlcle 34 of Lhe new Labor
Code ln relaLlon Lo ArLlcle 38 of Lhe same code
1hls C8uL8 ls wlLhouL pre[udlce Lo your crlmlnal prosecuLlon under exlsLlng laws
uone ln Lhe ClLy of Manlla Lhls 3Lh day of november 1987
3 Cn !anuary 26 1988 CLA ulrecLor on Llcenslng and 8egulaLlon ALLy LsLellLa 8
LsplrlLu lssued an offlce order deslgnaLlng respondenLs ALLy Marquez ALLy
!ovenclo Abara and ALLy LrnesLo vlsLro as members of a Leam Lasked Lo lmplemenL
Closure and Selzure Crder no 1203 uolng so Lhe group asslsLed by Mandaluyong
pollcemen and medlamen LlLo CasLlllo of Lhe eoples !ournal and Lrnle 8aluyoL of
news 1oday proceeded Lo Lhe resldence of Lhe peLlLloner aL 613 8C SanLos SL
Mandaluyong MeLro Manlla 1here lL was found LhaL peLlLloner was operaLlng
Pannalle uance SLudlo 8efore enLerlng Lhe place Lhe Leam served sald Closure and
Selzure order on a cerLaln Mrs llora Salazar who volunLarlly allowed Lhem enLry
lnLo Lhe premlses Mrs llora Salazar lnformed Lhe Leam LhaL Pannalle uance SLudlo
was accredlLed wlLh Moreman uevelopmenL (hll) Powever when requlred Lo
show credenLlals she was unable Lo produce any lnslde Lhe sLudlo Lhe Leam
chanced upon Lwelve LalenL performers pracLlclng a dance number and saw
abouL LwenLy more walLlng ouLslde 1he Leam conflscaLed assorLed cosLumes whlch
were duly recelpLed for by Mrs Asunclon Maguelan and wlLnessed by Mrs llora
Salazar
6 Cn !anuary 28 1988 peLlLloner flled wlLh CLA Lhe followlng leLLer
CenLlemen
Cn behalf of Ms PorLy Salazar of 613 8C SanLos Mandaluyong MeLro Manlla we
respecLfully requesL LhaL Lhe personal properLles selzed aL her resldence lasL
!anuary 26 1988 be lmmedlaLely reLurned on Lhe ground LhaL sald selzure was
conLrary Lo law and agalnsL Lhe wlll of Lhe owner Lhereof Among our reasons are
Lhe followlng
1 Cur cllenL has noL been glven any prlor noLlce or hearlng hence Lhe Closure and
Selzure Crder no 1203 daLed november 3 1987 vlolaLes due process of law
guaranLeed under Sec 1 ArL lll of Lhe hlllpplne ConsLlLuLlon
2 ?our acLs also vlolaLe Sec 2 ArL lll of Lhe hlllpplne ConsLlLuLlon whlch
guaranLees rlghL of Lhe people to be secote lo tbelt petsoos booses popets ooJ
effects oqolost ooteosoooble seotcbes ooJ selzotes of whaLever naLure and for any
purpose
3 1he premlses lnvaded by your Mr lerdl Marquez and flve (3) oLhers (lncludlng 2
pollcemen) are Lhe ptlvote teslJeoce of tbe 5olozot fomlly and Lhe enLry search as
well as Lhe selzure of Lhe personal properLles belonglng Lo our cllenL were wlLhouL
her consenL and were done wlLh unreasonable force and lnLlmldaLlon LogeLher
wlLh grave abuse of Lhe color of auLhorlLy and consLlLuLe robbery and vlolaLlon of
domlclle under ArLs 293 and 128 of Lhe 8evlsed enal Code
unless sald personal properLles worLh around 1Ln 1PCuSAnu LSCS (1000000)
ln all (and whlch were already due for shlpmenL Lo !apan) are reLurned wlLhln
LwenLyfour (24) hours from your recelpL hereof we shall feel free Lo Lake all legal
acLlon clvll and crlmlnal Lo proLecL our cllenLs lnLeresLs
We LrusL LhaL you wlll glve due aLLenLlon Lo Lhese lmporLanL maLLers
7 Cn lebruary 2 1988 before CLA could answer Lhe leLLer peLlLloner flled Lhe
lnsLanL peLlLlon on even daLe CLA flled a crlmlnal complalnL agalnsL her wlLh Lhe
aslg rovlnclal llscal dockeLed as lS88836
1

Cn lebruary 2 1988 Lhe peLlLloner flled Lhls sulL for prohlblLlon AlLhough Lhe acLs
soughL Lo be barred are already folt occompll Lhereby maklng prohlblLlon Loo laLe
we conslder Lhe peLlLlon as one for cettlototl ln vlew of Lhe grave publlc lnLeresL
lnvolved
1he CourL flnds LhaL a lone lssue confronLs lL May Lhe hlllpplne Cverseas
LmploymenL AdmlnlsLraLlon (or Lhe SecreLary of Labor) valldly lssue warranLs of
search and selzure (or arresL) under ArLlcle 38 of Lhe Labor Code? lL ls also an lssue
squarely ralsed by Lhe peLlLloner for Lhe CourLs resoluLlon
under Lhe new ConsLlLuLlon whlch sLaLes
no search warranL or warranL of arresL shall lssue excepL upon probable cause
Lo be deLermlned personally by Lhe [udge afLer examlnaLlon under oaLh or
afflrmaLlon of Lhe complalnanL and Lhe wlLnesses he may produce and parLlcularly
descrlblng Lhe place Lo be searched and Lhe persons or Lhlngs Lo be selzed
2

lL ls only a [udge who may lssue warranLs of search and arresL
3
ln one case lL was
declared LhaL mayors may noL exerclse Lhls power
xxx xxx xxx
8uL lL musL be emphaslzed here and now LhaL whaL has [usL been descrlbed ls Lhe
sLaLe of Lhe law as lL was ln SepLember 1983 1he law has slnce been alLered no
longer does Lhe mayor have aL Lhls Llme Lhe power Lo conducL prellmlnary
lnvesLlgaLlons much less lssue orders of arresL SecLlon 143 of Lhe Local
CovernmenL Code conferrlng Lhls power on Lhe mayor has been abrogaLed
rendered fooctos offlclo by Lhe 1987 ConsLlLuLlon whlch Look effecL on lebruary 2
1987 Lhe daLe of lLs raLlflcaLlon by Lhe llllplno people SecLlon 2 ArLlcle lll of Lhe
1987 ConsLlLuLlon perLlnenLly provldes LhaL no search warranL or warranL of arresL
shall lssue excepL upon probable cause Lo be deLermlned personally by Lhe [udge
afLer examlnaLlon under oaLh or afflrmaLlon of Lhe complalnanL and Lhe wlLnesses
137

he may produce and parLlcularly descrlblng Lhe place Lo be searched and Lhe
person or Lhlngs Lo be selzed 1he consLlLuLlonal proscrlpLlon has Lhereby been
manlfesLed LhaL LhenceforLh Lhe funcLlon of deLermlnlng probable cause and
lssulng on Lhe basls Lhereof warranLs of arresL or search warranLs may be valldly
exerclsed only by [udges Lhls belng evldenced by Lhe ellmlnaLlon ln Lhe presenL
ConsLlLuLlon of Lhe phrase such oLher responslble offlcer as may be auLhorlzed by
law found ln Lhe counLerparL provlslon of sald 1973 ConsLlLuLlon who aslde from
[udges mlghL conducL prellmlnary lnvesLlgaLlons and lssue warranLs of arresL or
search warranLs
4

nelLher may lL be done by a mere prosecuLlng body
We agree LhaL Lhe resldenLlal AnLluollar SalLlng 1ask lorce exerclses or was
meanL Lo exerclse prosecuLorlal powers and on LhaL ground lL cannoL be sald Lo
be a neuLral and deLached [udge Lo deLermlne Lhe exlsLence of probable cause for
purposes of arresL or search unllke a maglsLraLe a prosecuLor ls naLurally
lnLeresLed ln Lhe success of hls case AlLhough hls offlce ls Lo see LhaL [usLlce ls
done and noL necessarlly Lo secure Lhe convlcLlon of Lhe person accused he
sLands lnvarlably as Lhe accuseds adversary and hls accuser 1o permlL hlm Lo
lssue search warranLs and lndeed warranLs of arresL ls Lo make hlm boLh [udge and
[ury ln hls own rlghL when he ls nelLher 1haL makes Lo our mlnd and Lo LhaL
exLenL resldenLlal uecree no 1936 as amended by resldenLlal uecree no 2002
unconsLlLuLlonal
3

SecLlon 38 paragraph (c) of Lhe Labor Code as now wrlLLen was enLered as an
amendmenL by resldenLlal uecrees nos 1920 and 2018 of Lhe laLe resldenL
lerdlnand Marcos Lo resldenLlal uecree no 1693 ln Lhe exerclse of hls leglslaLlve
powers under AmendmenL no 6 of Lhe 1973 ConsLlLuLlon under Lhe laLLer Lhe
Lhen MlnlsLer of Labor merely exerclsed recommendaLory powers
(c) 1he MlnlsLer of Labor or hls duly auLhorlzed represenLaLlve shall have Lhe power
Lo recommend Lhe arresL and deLenLlon of any person engaged ln lllegal
recrulLmenL
6

Cn May 1 1984 Mr Marcos promulgaLed resldenLlal uecree no 1920 wlLh Lhe
avowed purpose of glvlng more LeeLh Lo Lhe campalgn agalnsL lllegal recrulLmenL
1he uecree gave Lhe MlnlsLer of Labor arresL and closure powers
(b) 1he MlnlsLer of Labor and LmploymenL shall have Lhe power Lo cause Lhe arresL
and deLenLlon of such nonllcensee or nonholder of auLhorlLy lf afLer proper
lnvesLlgaLlon lL ls deLermlned LhaL hls acLlvlLles consLlLuLe a danger Lo naLlonal
securlLy and publlc order or wlll lead Lo furLher explolLaLlon of [obseekers 1he
MlnlsLer shall order Lhe closure of companles esLabllshmenL and enLlLles found Lo
be engaged ln Lhe recrulLmenL of workers for overseas employmenL wlLhouL havlng
been llcensed or auLhorlzed Lo do so
7

Cn !anuary 26 1986 he Mr Marcos promulgaLed resldenLlal uecree no 2018
glvlng Lhe Labor MlnlsLer search and selzure powers as well
(c) 1he MlnlsLer of Labor and LmploymenL or hls duly auLhorlzed represenLaLlves
shall have Lhe power Lo cause Lhe arresL and deLenLlon of such nonllcensee or non
holder of auLhorlLy lf afLer lnvesLlgaLlon lL ls deLermlned LhaL hls acLlvlLles consLlLuLe
a danger Lo naLlonal securlLy and publlc order or wlll lead Lo furLher explolLaLlon of
[obseekers 1he MlnlsLer shall order Lhe search of Lhe offlce or premlses and
selzure of documenLs paraphernalla properLles and oLher lmplemenLs used ln
lllegal recrulLmenL acLlvlLles and Lhe closure of companles esLabllshmenL and
enLlLles found Lo be engaged ln Lhe recrulLmenL of workers for overseas
employmenL wlLhouL havlng been llcensed or auLhorlzed Lo do so
8

1he above has now been eLched as ArLlcle 38 paragraph (c) of Lhe Labor Code
1he decrees ln quesLlon lL ls well Lo noLe sLand as Lhe dylng vesLlges of
auLhorlLarlan rule ln lLs LwlllghL momenLs
We relLeraLe LhaL Lhe SecreLary of Labor noL belng a [udge may no longer lssue
search or arresL warranLs Pence Lhe auLhorlLles musL go Lhrough Lhe [udlclal
process 1o LhaL exLenL we declare ArLlcle 38 paragraph (c) of Lhe Labor Code
unconsLlLuLlonal and of no force and effecL
1he SollclLor Cenerals rellance on Lhe case of Motooo v vlvo
9
ls noL wellLaken
vlvo lnvolved a deporLaLlon case governed by SecLlon 69 of Lhe defuncL 8evlsed
AdmlnlsLraLlve Code and by SecLlon 37 of Lhe lmmlgraLlon Law We have ruled LhaL
ln deporLaLlon cases an arresL (of an undeslrable allen) ordered by Lhe resldenL or
hls duly auLhorlzed represenLaLlves ln order Lo carry ouL a flnal declslon of
deporLaLlon ls valld
10
lL ls valld however because of Lhe recognlzed supremacy of
Lhe LxecuLlve ln maLLers lnvolvlng forelgn affalrs We have held
11

xxx xxx xxx
1he SLaLe has Lhe lnherenL power Lo deporL undeslrable allens (Chuoco 1laco vs
lorbes 228 uS 349 37 L Ld 960 40 hll 1122 1123) 1haL power may be
exerclsed by Lhe Chlef LxecuLlve when he deems such acLlon necessary for Lhe
peace and domesLlc LranqulllLy of Lhe naLlon !usLlce !ohnsons oplnlon ls LhaL
when Lhe Chlef LxecuLlve flnds LhaL Lhere are allens whose conLlnued presence ln
Lhe counLry ls ln[urlous Lo Lhe publlc lnLeresL he may even ln Lhe absence of
express law deporL Lhem (lorbes vs Chuoco 1laco and Crossfleld 16 hll 334
368 369 ln re McCulloch ulck 38 hll 41)
1he rlghL of a counLry Lo expel or deporL allens because Lhelr conLlnued presence ls
deLrlmenLal Lo publlc welfare ls absoluLe and unquallfled (1lu Chun Pal and Co 1am
vs Commlssloner of lmmlgraLlon and Lhe ulrecLor of n8l 104 hll 949 936)
12

1he power of Lhe resldenL Lo order Lhe arresL of allens for deporLaLlon ls
obvlously excepLlonal lL (Lhe power Lo order arresLs) can noL be made Lo exLend Lo
oLher cases llke Lhe one aL bar under Lhe ConsLlLuLlon lL ls Lhe sole domaln of Lhe
courLs
Moreover Lhe search and selzure order ln quesLlon assumlng ex qtotlo otqomeotl
LhaL lL was valldly lssued ls clearly ln Lhe naLure of a general warranL
138

ursuanL Lo Lhe powers vesLed ln me under resldenLlal uecree no 1920 and
LxecuLlve Crder no 1022 l hereby order Lhe CLCSu8L of your recrulLmenL agency
belng operaLed aL no 613 8C SanLos SL Mandaluyong MeLro Manlla and Lhe
selzure of Lhe documenLs and paraphernalla belng used or lnLended Lo be used as
Lhe means of commlLLlng lllegal recrulLmenL lL havlng verlfled LhaL you have
(1) no valld llcense or auLhorlLy from Lhe ueparLmenL of Labor and LmploymenL Lo
recrulL and deploy workers for overseas employmenL
(2) CommlLLed/are commlLLlng acLs prohlblLed under ArLlcle 34 of Lhe new Labor
Code ln relaLlon Lo ArLlcle 38 of Lhe same code
1hls C8uL8 ls wlLhouL pre[udlce Lo your crlmlnal prosecuLlon under exlsLlng laws
13

We have held LhaL a warranL musL ldenLlfy clearly Lhe Lhlngs Lo be selzed
oLherwlse lL ls null and vold Lhus
xxx xxx xxx
AnoLher facLor whlch makes Lhe search warranLs under conslderaLlon
consLlLuLlonally ob[ecLlonable ls LhaL Lhey are ln Lhe naLure of general warranLs 1he
search warranLs descrlbe Lhe arLlcles soughL Lo be selzed ln Lhls wlse
1) All prlnLlng equlpmenL paraphernalla paper lnk phoLo equlpmenL LypewrlLers
cablneLs Lables communlcaLlons/ recordlng equlpmenL Lape recorders
dlcLaphone and Lhe llke used and/or connecLed ln Lhe prlnLlng of Lhe WL lC8uM
newspaper and any and all documenLs/communlcaLlons leLLers and facslmlle of
prlnLs relaLed Lo Lhe WL lC8uM newspaper
2) Subverslve documenLs pamphleLs leafleLs books and oLher publlcaLlons Lo
promoLe Lhe ob[ecLlves and purposes of Lhe subverslve organlzaLlons known as
MovemenL for lree hlllpplnes LlghLallre MovemenL and Aprll 6 MovemenL and
3) MoLor vehlcles used ln Lhe dlsLrlbuLlon/clrculaLlon of Lhe WL lC8uM and oLher
subverslve maLerlals and propaganda more parLlcularly
1) 1oyoLaCorolla colored yellow wlLh laLe no nkA 892
2) uA1Sun plckup colored whlLe wlLh laLe no nkv 969
3) A dellvery Lruck wlLh laLe no n8S 342
4) 1C?C1A1AMA8AW colored whlLe wlLh laLe no 8 663 and
3) 1C?C1A PlLux plckup Lruck wlLh laLe no nCv 472 wlLh marklng 8agong
Sllang
ln 5toofotJ v 5tote of 1exos Lhe search warranL whlch auLhorlzed Lhe search for
books records pamphleLs cards recelpLs llsLs memoranda plcLures recordlngs
and oLher wrlLLen lnsLrumenLs concernlng Lhe CommunlsL arLles of 1exas and Lhe
operaLlons of Lhe CommunlLy arLy ln 1exas was declared vold by Lhe uS
Supreme CourL for belng Loo general ln llke manner dlrecLlons Lo selze any
evldence ln connecLlon wlLh Lhe vlolaLlon of SuC 133703 or oLherwlse have been
held Loo general and LhaL porLlon of a search warranL whlch auLhorlzed Lhe selzure
of any paraphernalla whlch could be used Lo vlolaLe Sec 34197 of Lhe ConnecLlcuL
Ceneral SLaLuLes (Lhe sLaLuLe deallng wlLh Lhe crlme of consplracy) was held Lo be
a general warranL and Lherefore lnvalld 1he descrlpLlon of Lhe arLlcles soughL Lo be
selzed under Lhe search warranLs ln quesLlon cannoL be characLerlzed dlfferenLly
ln Lhe SLanford case Lhe uS Supreme courL calls Lo mlnd a noLable chapLer ln
Lngllsh hlsLory Lhe era of dlsaccord beLween Lhe 1udor CovernmenL and Lhe
Lngllsh ress when Cfflcers of Lhe Crown were glven rovlng commlsslons Lo search
where Lhey pleased ln order Lo suppress and desLroy Lhe llLeraLure of dlssenL boLh
CaLhollc and urlLan 8eference hereln Lo such hlsLorlcal eplsode would noL be
relevanL for lL ls noL Lhe pollcy of our governmenL Lo suppress any newspaper or
publlcaLlon LhaL speaks wlLh Lhe volce of nonconformlLy buL poses no clear and
lmmlnenL danger Lo sLaLe securlLy
14

lor Lhe guldance of Lhe bench and Lhe bar we reafflrm Lhe followlng prlnclples
1 under ArLlcle lll SecLlon 2 of Lhe l987 ConsLlLuLlon lL ls only [udges and no
oLher who may lssue warranLs of arresL and search
2 1he excepLlon ls ln cases of deporLaLlon of lllegal and undeslrable allens whom
Lhe resldenL or Lhe Commlssloner of lmmlgraLlon may order arresLed followlng a
flnal order of deporLaLlon for Lhe purpose of deporLaLlon
WPL8LlC8L Lhe peLlLlon ls C8An1Lu ArLlcle 38 paragraph (c) of Lhe Labor Code ls
declared unCCnS1l1u1lCnAL and null and vold 1he respondenLs are C8uL8Lu Lo
reLurn all maLerlals selzed as a resulL of Lhe lmplemenLaLlon of Search and Selzure
Crder no 1203
no cosLs
SC C8uL8Lu
C8 no L34913 !une 24 1983

CI1 GCVLkNMLN1 CI UL2CN CI1 and CI1 CCUNCIL CI UL2CN CI1
pet|t|oners
vs
CN IUDGL VICLN1L G LkIC1A as Iudge of the Court of I|rst Instance of k|za|
uezon C|ty 8ranch kVIII IMLAANG 9ILI9INC INC respondents
ity lisco/ for petitioners
Monue/ Ii//orue/ r ond le/iciono @umo/e for respondents

Cu1lL88LZ !8 I
1hls ls a peLlLlon for revlew whlch seeks Lhe reversal of Lhe declslon of Lhe CourL of
llrsL lnsLance of 8lzal 8ranch xvlll declarlng SecLlon 9 of Crdlnance no 6118 S64
of Lhe Cuezon ClLy Councll null and vold
SecLlon 9 of Crdlnance no 6118 S64 enLlLled C8ulnAnCL 8LCuLA1lnC 1PL
LS1A8LlSPMLn1 MAln1LnAnCL Anu CL8A1lCn Cl 8lvA1L MLMC8lAL 1?L
CLML1L8? C8 8u8lAL C8Cunu Wl1Pln 1PL !u8lSulC1lCn Cl CuLZCn Cl1? Anu
8CvlulnC LnAL1lLS lC8 1PL vlCLA1lCn 1PL8LCl provldes
Sec 9 AL leasL slx (6) percenL of Lhe LoLal area of Lhe memorlal park cemeLery shall
be seL aslde for charlLy burlal of deceased persons who are paupers and have been
139

resldenLs of Cuezon ClLy for aL leasL 3 years prlor Lo Lhelr deaLh Lo be deLermlned
by compeLenL ClLy AuLhorlLles 1he area so deslgnaLed shall lmmedlaLely be
developed and should be open for operaLlon noL laLer Lhan slx monLhs from Lhe
daLe of approval of Lhe appllcaLlon
lor several years Lhe aforequoLed secLlon of Lhe Crdlnance was noL enforced by
clLy auLhorlLles buL seven years afLer Lhe enacLmenL of Lhe ordlnance Lhe Cuezon
ClLy Councll passed Lhe followlng resoluLlon
k5Olvu by tbe cooocll of Ooezoo ossembleJ Lo requesL as lL does hereby
requesL Lhe ClLy Lnglneer Cuezon ClLy Lo sLop any furLher selllng and/or
LransacLlon of memorlal park loLs ln Cuezon ClLy where Lhe owners Lhereof have
falled Lo donaLe Lhe requlred 6 space lnLended for paupers burlal
ursuanL Lo Lhls peLlLlon Lhe Cuezon ClLy Lnglneer noLlfled respondenL Plmlayang
lllplno lnc ln wrlLlng LhaL SecLlon 9 of Crdlnance no 6118 S64 would be
enforced
8espondenL Plmlayang lllplno reacLed by flllng wlLh Lhe CourL of llrsL lnsLance of
8lzal 8ranch xvlll aL Cuezon ClLy a peLlLlon for declaraLory rellef prohlblLlon and
mandamus wlLh prellmlnary ln[uncLlon (Sp roc no C16002) seeklng Lo annul
SecLlon 9 of Lhe Crdlnance ln quesLlon 1he respondenL alleged LhaL Lhe same ls
conLrary Lo Lhe ConsLlLuLlon Lhe Cuezon ClLy CharLer Lhe Local AuLonomy AcL and
Lhe 8evlsed AdmlnlsLraLlve Code
1here belng no lssue of facL and Lhe quesLlons ralsed belng purely legal boLh
peLlLloners and respondenL agreed Lo Lhe rendlLlon of a [udgmenL on Lhe pleadlngs
1he respondenL courL Lherefore rendered Lhe declslon declarlng SecLlon 9 of
Crdlnance no 6118 S64 null and vold
A moLlon for reconslderaLlon havlng been denled Lhe ClLy CovernmenL and ClLy
Councll flled Lhe lnsLanL peLlLlon
eLlLloners argue LhaL Lhe Laklng of Lhe respondenLs properLy ls a valld and
reasonable exerclse of pollce power and LhaL Lhe land ls Laken for a publlc use as lL
ls lnLended for Lhe burlal ground of paupers 1hey furLher argue LhaL Lhe Cuezon
ClLy Councll ls auLhorlzed under lLs charLer ln Lhe exerclse of local pollce power
Lo make such furLher ordlnances and resoluLlons noL repugnanL Lo law as may be
necessary Lo carry lnLo effecL and dlscharge Lhe powers and duLles conferred by Lhls
AcL and such as lL shall deem necessary and proper Lo provlde for Lhe healLh and
safeLy promoLe Lhe prosperlLy lmprove Lhe morals peace good order comforL
and convenlence of Lhe clLy and Lhe lnhablLanLs Lhereof and for Lhe proLecLlon of
properLy Lhereln
Cn Lhe oLher hand respondenL Plmlayang lllplno lnc conLends LhaL Lhe Laklng or
conflscaLlon of properLy ls obvlous because Lhe quesLloned ordlnance permanenLly
resLrlcLs Lhe use of Lhe properLy such LhaL lL cannoL be used for any reasonable
purpose and deprlves Lhe owner of all beneflclal use of hls properLy
1he respondenL also sLresses LhaL Lhe general welfare clause ls noL avallable as a
source of power for Lhe Laklng of Lhe properLy ln Lhls case because lL refers Lo Lhe
power of promoLlng Lhe publlc welfare by resLralnlng and regulaLlng Lhe use of
llberLy and properLy 1he respondenL polnLs ouL LhaL lf an owner ls deprlved of hls
properLy ouLrlghL under Lhe SLaLes pollce power Lhe properLy ls generally noL
Laken for publlc use buL ls urgenLly and summarlly desLroyed ln order Lo promoLe
Lhe general welfare 1he respondenL clLes Lhe case of a nulsance per se or Lhe
desLrucLlon of a house Lo prevenL Lhe spread of a conflagraLlon
We flnd Lhe sLand of Lhe prlvaLe respondenL as well as Lhe declslon of Lhe
respondenL !udge Lo be wellfounded We quoLe wlLh approval Lhe lower courLs
rullng whlch declared null and vold SecLlon 9 of Lhe quesLloned clLy ordlnance
1he lssue ls ls SecLlon 9 of Lhe ordlnance ln quesLlon a valld exerclse of Lhe pollce
power?
An examlnaLlon of Lhe CharLer of Cuezon ClLy (8ep AcL no 337) does noL reveal
any provlslon LhaL would [usLlfy Lhe ordlnance ln quesLlon excepL Lhe provlslon
granLlng pollce power Lo Lhe ClLy SecLlon 9 cannoL be [usLlfled under Lhe power
granLed Lo Cuezon ClLy Lo Lax flx Lhe llcense fee and teqolote such oLher buslness
Lrades and occupaLlon as may be esLabllshed or pracLlsed ln Lhe ClLy (SubsecLlons
C Sec 12 8A 337)
1he power Lo regulaLe does noL lnclude Lhe power Lo prohlblL (eople vs Lsguerra
81 hlL 33 vega vs Munlclpal 8oard of llollo L6763 May 12 1934 39 n! Law 70
Mlch 396) A forLlorl Lhe power Lo regulaLe does noL lnclude Lhe power Lo
conflscaLe 1he ordlnance ln quesLlon noL only conflscaLes buL also prohlblLs Lhe
operaLlon of a memorlal park cemeLery because under SecLlon 13 of sald
ordlnance vlolaLlon of Lhe provlslon Lhereof ls punlshable wlLh a flne and/or
lmprlsonmenL and LhaL upon convlcLlon Lhereof Lhe permlL Lo operaLe and malnLaln
a prlvaLe cemeLery shall be revoked or cancelled 1he conflscaLory clause and Lhe
penal provlslon ln effecL deLer one from operaLlng a memorlal park cemeLery
nelLher can Lhe ordlnance ln quesLlon be [usLlfled under sub secLlon L SecLlon 12
of 8epubllc AcL 337 whlch auLhorlzes Lhe ClLy Councll Lo
prohlblL Lhe burlal of Lhe dead wlLhln Lhe cenLer of populaLlon of Lhe clLy and
provlde for Lhelr burlal ln such proper place and ln such manner as Lhe councll may
deLermlne sub[ecL Lo Lhe provlslons of Lhe general law regulaLlng burlal grounds
and cemeLerles and governlng funerals and dlsposal of Lhe dead (Subsec (L) Sec
12 8ep AcL no 337)
1here ls noLhlng ln Lhe above provlslon whlch auLhorlzes conflscaLlon or as
euphemlsLlcally Lermed by Lhe respondenLs donaLlon
We now come Lo Lhe quesLlon wheLher or noL SecLlon 9 of Lhe ordlnance ln
quesLlon ls a valld exerclse of pollce power 1he pollce power of Cuezon ClLy ls
deflned ln subsecLlon 00 Sec 12 8ep AcL 337 whlch reads as follows
(00) 1o make such furLher ordlnance and regulaLlons noL repugnanL Lo law as may
be necessary Lo carry lnLo effecL and dlscharge Lhe powers and duLles conferred by
Lhls acL and such as lL shall deem necessary and proper Lo provlde for Lhe healLh
and safeLy promoLe Lhe prosperlLy lmprove Lhe morals peace good order
140

comforL and convenlence of Lhe clLy and Lhe lnhablLanLs Lhereof and for Lhe
proLecLlon of properLy Lhereln and enforce obedlence LhereLo wlLh such lawful
flnes or penalLles as Lhe ClLy Councll may prescrlbe under Lhe provlslons of
subsecLlon ([[) of Lhls secLlon
We sLarL Lhe dlscusslon wlLh a resLaLemenL of cerLaln baslc prlnclples Cccupylng
Lhe forefronL ln Lhe blll of rlghLs ls Lhe provlslon whlch sLaLes LhaL no person shall
be deprlved of llfe llberLy or properLy wlLhouL due process of law (ArL lll SecLlon 1
subparagraph 1 ConsLlLuLlon)
Cn Lhe oLher hand Lhere are Lhree lnherenL powers of governmenL by whlch Lhe
sLaLe lnLerferes wlLh Lhe properLy rlghLs namely (1) pollce power (2) emlnenL
domaln (3) LaxaLlon 1hese are sald Lo exlsL lndependenLly of Lhe ConsLlLuLlon as
necessary aLLrlbuLes of soverelgnLy
ollce power ls deflned by lreund as Lhe power of promoLlng Lhe publlc welfare by
resLralnlng and regulaLlng Lhe use of llberLy and properLy (CuoLed ln ollLlcal Law
by 1anada and Carreon v11 p 30) lL ls usually exerLed ln order Lo merely regulaLe
Lhe use and en[oymenL of properLy of Lhe owner lf he ls deprlved of hls properLy
ouLrlghL lL ls noL Laken for publlc use buL raLher Lo desLroy ln order Lo promoLe Lhe
general welfare ln pollce power Lhe owner does noL recover from Lhe governmenL
for ln[ury susLalned ln consequence Lhereof (12 C! 623) lL has been sald LhaL
pollce power ls Lhe mosL essenLlal of governmenL powers aL Llmes Lhe mosL
lnslsLenL and always one of Lhe leasL llmlLable of Lhe powers of governmenL (8uby
vs rovlnclal 8oard 39 hlL 660 lchong vs Pernandez 17993 May 31 1937) 1hls
power embraces Lhe whole sysLem of publlc regulaLlon (uS vs Llnsuya lan 10 hlL
104) 1he Supreme CourL has sald LhaL pollce power ls so farreachlng ln scope LhaL
lL has almosL become lmposslble Lo llmlL lLs sweep As lL derlves lLs exlsLence from
Lhe very exlsLence of Lhe sLaLe lLself lL does noL need Lo be expressed or deflned ln
lLs scope 8elng coexLenslve wlLh selfpreservaLlon and survlval lLself lL ls Lhe mosL
poslLlve and acLlve of all governmenLal processes Lhe mosL essenLlal lnslsLenL and
llllmlLable Lspeclally lL ls so under Lhe modern democraLlc framework where Lhe
demands of socleLy and naLlons have mulLlplled Lo almosL unlmaglnable
proporLlons 1he fleld and scope of pollce power have become almosL boundless
[usL as Lhe flelds of publlc lnLeresL and publlc welfare have become almosL all
embraclng and have Lranscended human foreslghL Slnce Lhe CourLs cannoL foresee
Lhe needs and demands of publlc lnLeresL and welfare Lhey cannoL dellmlL
beforehand Lhe exLenL or scope of Lhe pollce power by whlch and Lhrough whlch
Lhe sLaLe seeks Lo aLLaln or achleve publlc lnLeresL and welfare (lchong vs
Pernandez L7993 May 31 1937)
1he pollce power belng Lhe mosL acLlve power of Lhe governmenL and Lhe due
process clause belng Lhe broadesL sLaLlon on governmenLal power Lhe confllcL
beLween Lhls power of governmenL and Lhe due process clause of Lhe ConsLlLuLlon
ls ofLenLlmes lnevlLable
lL wlll be seen from Lhe foregolng auLhorlLles LhaL pollce power ls usually exerclsed
ln Lhe form of mere regulaLlon or resLrlcLlon ln Lhe use of llberLy or properLy for Lhe
promoLlon of Lhe general welfare lL does noL lnvolve Lhe Laklng or conflscaLlon of
properLy wlLh Lhe excepLlon of a few cases where Lhere ls a necesslLy Lo conflscaLe
prlvaLe properLy ln order Lo desLroy lL for Lhe purpose of proLecLlng Lhe peace and
order and of promoLlng Lhe general welfare as for lnsLance Lhe conflscaLlon of an
lllegally possessed arLlcle such as oplum and flrearms
lL seems Lo Lhe courL LhaL SecLlon 9 of Crdlnance no 6118 Serles of 1964 of
Cuezon ClLy ls noL a mere pollce regulaLlon buL an ouLrlghL conflscaLlon lL deprlves
a person of hls prlvaLe properLy wlLhouL due process of law nay even wlLhouL
compensaLlon
ln susLalnlng Lhe declslon of Lhe respondenL courL we are noL unmlndful of Lhe
heavy burden shouldered by whoever challenges Lhe valldlLy of duly enacLed
leglslaLlon wheLher naLlonal or local As early as 1913 Lhls CourL ruled ln cose v
8ootJ of neoltb (24 hlL 230) LhaL Lhe courLs resolve every presumpLlon ln favor of
valldlLy and more so where Lhe ma corporaLlon asserLs LhaL Lhe ordlnance was
enacLed Lo promoLe Lhe common good and general welfare
ln Lhe leadlng case of tmltoMolote notel ooJ Motel Opetotots Assoclotloo loc v
clty Moyot of Moollo (20 SC8A 849) Lhe CourL speaklng Lhrough Lhe Lhen AssoclaLe
!usLlce and now Chlef !usLlce Lnrlque M lernando sLaLed
rlmarlly whaL calls for a reversal of such a declslon ls Lhe a of any evldence Lo
offseL Lhe presumpLlon of valldlLy LhaL aLLaches Lo a sLaLuLe or ordlnance As was
expressed caLegorlcally by !usLlce Malcolm 1he presumpLlon ls all ln favor of
valldlLy 1he acLlon of Lhe elecLed represenLaLlves of Lhe people cannoL be llghLly
seL aslde 1he councllors musL ln Lhe very naLure of Lhlngs be famlllar wlLh Lhe
necesslLles of Lhelr parLlcular munlclpallLy and wlLh all Lhe facLs and lances whlch
surround Lhe sub[ecL and necesslLaLe acLlon 1he local leglslaLlve body by enacLlng
Lhe ordlnance has ln effecL glven noLlce LhaL Lhe regulaLlons are essenLlal Lo Lhe
wellbelng of Lhe people 1he !udlclary should noL llghLly seL aslde leglslaLlve
acLlon when Lhere ls noL a clear lnvaslon of personal or properLy rlghLs under Lhe
gulse of pollce regulaLlon (uS v Salaverla (1918 39 hll 102 aL p 111 1here was
an afflrmaLlon of Lhe presumpLlon of valldlLy of munlclpal ordlnance as announced
ln Lhe leadlng Salaverla declslon ln Lbona v uaeL 193083 hll 369)
We have llkewlse consldered Lhe prlnclples earller sLaLed ln Case v 8oard of PealLh
sopto
under Lhe provlslons of munlclpal charLers whlch are known as Lhe general
welfare clauses a clLy by vlrLue of lLs pollce power may adopL ordlnances Lo Lhe
peace safeLy healLh morals and Lhe besL and hlghesL lnLeresLs of Lhe munlclpallLy
lL ls a wellseLLled prlnclple growlng ouL of Lhe naLure of wellordered and socleLy
LhaL every holder of properLy however absoluLe and may be hls LlLle holds lL under
Lhe lmplled llablllLy LhaL hls use of lL shall noL be ln[urlous Lo Lhe equal en[oymenL of
oLhers havlng an equal rlghL Lo Lhe en[oymenL of Lhelr properLy nor ln[urlous Lo Lhe
141

rlghLs of Lhe communlLy An properLy ln Lhe sLaLe ls held sub[ecL Lo lLs general
regulaLlons whlch are necessary Lo Lhe common good and general welfare 8lghLs
of properLy llke all oLher soclal and convenLlonal rlghLs are sub[ecL Lo such
reasonable llmlLaLlons ln Lhelr en[oymenL as shall prevenL Lhem from belng
ln[urlous and Lo such reasonable resLralnLs and regulaLlons esLabllshed by law as
Lhe leglslaLure under Lhe governlng and conLrolllng power vesLed ln Lhem by Lhe
consLlLuLlon may Lhlnk necessary and expedlenL 1he sLaLe under Lhe pollce power
ls possessed wlLh plenary power Lo deal wlLh all maLLers relaLlng Lo Lhe general
healLh morals and safeLy of Lhe people so long as lL does noL conLravene any
poslLlve lnhlblLlon of Lhe organlc law and provldlng LhaL such power ls noL exerclsed
ln such a manner as Lo [usLlfy Lhe lnLerference of Lhe courLs Lo prevenL poslLlve
wrong and oppresslon
buL flnd Lhem noL appllcable Lo Lhe facLs of Lhls case
1here ls no reasonable relaLlon beLween Lhe seLLlng aslde of aL leasL slx (6) percenL
of Lhe LoLal area of an prlvaLe cemeLerles for charlLy burlal grounds of deceased
paupers and Lhe promoLlon of healLh morals good order safeLy or Lhe general
welfare of Lhe people 1he ordlnance ls acLually a Laklng wlLhouL compensaLlon of a
cerLaln area from a prlvaLe cemeLery Lo beneflL paupers who are charges of Lhe
munlclpal corporaLlon lnsLead of bulldlng or malnLalnlng a publlc cemeLery for Lhls
purpose Lhe clLy passes Lhe burden Lo prlvaLe cemeLerles
1he exproprlaLlon wlLhouL compensaLlon of a porLlon of prlvaLe cemeLerles ls noL
covered by SecLlon 12(L) of 8epubllc AcL 337 Lhe 8evlsed CharLer of Cuezon ClLy
whlch empowers Lhe clLy councll Lo prohlblL Lhe burlal of Lhe dead wlLhln Lhe cenLer
of populaLlon of Lhe clLy and Lo provlde for Lhelr burlal ln a proper place sub[ecL Lo
Lhe provlslons of general law regulaLlng burlal grounds and cemeLerles When Lhe
Local CovernmenL Code 8aLas ambansa 8lg 337 provldes ln SecLlon 177 (q) LhaL a
Sanggunlang panlungsod may provlde for Lhe burlal of Lhe dead ln such place and
ln such manner as prescrlbed by law or ordlnance lL slmply auLhorlzes Lhe clLy Lo
provlde lLs own clLy owned land or Lo buy or exproprlaLe prlvaLe properLles Lo
consLrucL publlc cemeLerles 1hls has been Lhe law and pracLlse ln Lhe pasL lL
conLlnues Lo Lhe presenL LxproprlaLlon however requlres paymenL of [usL
compensaLlon 1he quesLloned ordlnance ls dlfferenL from laws and regulaLlons
requlrlng owners of subdlvlslons Lo seL aslde cerLaln areas for sLreeLs parks
playgrounds and oLher publlc faclllLles from Lhe land Lhey sell Lo buyers of
subdlvlslon loLs 1he necesslLles of publlc safeLy healLh and convenlence are very
clear from sald requlremenLs whlch are lnLended Lo lnsure Lhe developmenL of
communlLles wlLh salubrlous and wholesome envlronmenLs 1he beneflclarles of
Lhe regulaLlon ln Lurn are made Lo pay by Lhe subdlvlslon developer when
lndlvldual loLs are sold Lo homeowners
As a maLLer of facL Lhe peLlLloners rely solely on Lhe general welfare clause or on
lmplled powers of Lhe munlclpal corporaLlon noL on any express provlslon of law as
sLaLuLory basls of Lhelr exerclse of power 1he clause has always recelved broad and
llberal lnLerpreLaLlon buL we cannoL sLreLch lL Lo cover Lhls parLlcular Laklng
Moreover Lhe quesLloned ordlnance was passed afLer Plmlayang lllplno lnc had
lncorporaLed recelved necessary llcenses and permlLs and commenced operaLlng
1he sequesLraLlon of slx percenL of Lhe cemeLery cannoL even be consldered as
havlng been lmplledly acknowledged by Lhe prlvaLe respondenL when lL accepLed
Lhe permlLs Lo commence operaLlons
WPL8LlC8L Lhe peLlLlon for revlew ls hereby ulSMlSSLu 1he declslon of Lhe
respondenL courL ls afflrmed
SC C8uL8Lu





Gk No L119694 May 22 199S
9ILI99INL 9kLSS INS1I1U1L INC for and |n beha|f of 139 members represented
by |ts 9res|dent Amado 9 Macasaet and |ts Lxecut|ve D|rector Lrm|n I Garc|a Ir
pet|t|oner
vs
CCMMISSICN CN LLLC1ICNS respondent
8 L S C L u 1 l C n

lLLlClAnC I
1he hlllpplne ress lnsLlLuLe lnc (l) ls before Lhls CourL assalllng Lhe
consLlLuLlonal valldlLy of 8esoluLlon no 2772 lssued by respondenL Commlsslon on
LlecLlons (Comelec) and lLs correspondlng Comelec dlrecLlve daLed 22 March
1993 Lhrough a eLlLlon for cettlototl and rohlblLlon eLlLloner l ls a nonsLock
nonproflL organlzaLlon of newspaper and magazlne publlshers
Cn 2 March 1993 Comelec promulgaLed 8esoluLlon no 2772 whlch reads ln parL
xxx xxx xxx
Sec 2 comelec 5poce 1he Commlsslon sboll ptocote ftee prlnL space of oot less
tboo ooe bolf (1/2) poqe lo ot leost ooe oewspopet of qeoetol cltcolotloo lo evety
ptovloce ot clty fot ose os comelec 5poce from March 6 1993 ln Lhe case of
candldaLes for senaLor and from March 21 1993 unLll May 12 1993 ln Lhe absence
of sald newspaper Comelec Space shall be obLalned from any magazlne or
perlodlcal of sald provlnce or clLy
Sec 3 uses of comelec 5poce comelec 5poce sboll be ollocoteJ by Lhe
Commlsslon ftee of cbotqe omooq oll cooJlJotes wlLhln Lhe area ln whlch Lhe
newspaper magazlne or perlodlcal ls clrculaLed Lo enable Lhe candldaLes Lo make
known Lhelr quallflcaLlons Lhelr sLand on publlc lssues and Lhelr plaLforms and
programs of governmenL
142

comelec 5poce sboll olso be oseJ by tbe commlssloo fot Jlssemlootloo of vltol
electloo lofotmotloo
Sec 4 Allocotloo of comelec 5poce (a) Comelec Space shall also be ovolloble
to oll cooJlJotes durlng Lhe perlods sLaLed ln SecLlon 2 hereof lLs ollocotloo sboll be
epool ooJ lmpottlol omooq oll cooJlJotes fot tbe some offlce All candldaLes
concerned shall be furnlshed a copy of Lhe allocaLlon of Comelec Space for Lhelr
lnformaLlon guldance and compllance
(b) Any candldaLe deslrlng Lo avall hlmself of Comelec Space from newspapers or
publlcaLlons based ln Lhe MeLropollLan Manlla Area shall submlL an appllcaLlon
Lherefor ln wrlLlng Lo Lhe CommlLLee on Mass Medla of Lhe Commlsslon Any
candldaLe deslrlng Lo avall hlmself of Comelec Space ln newspapers or
publlcaLlons based ln Lhe provlnces shall submlL hls appllcaLlon Lherefor ln wrlLlng
Lo Lhe rovlnclal LlecLlon Supervlsor concerned AppllcaLlons for avallmenL of
Comelec Space maybe flled aL any Llme from Lhe daLe of effecLlvlLy of Lhls
8esoluLlon
(c) 1he CommlLLee on Mass Medla and Lhe rovlnclal LlecLlon Supervlsors shall
ollocote ovolloble comelec 5poce omooq tbe cooJlJotes concerned by lottety of
whlch sald candldaLes shall be noLlfled ln advance ln wrlLlng Lo be presenL
personally or by represenLaLlve Lo wlLness Lhe loLLery aL Lhe daLe Llme and place
speclfled ln Lhe noLlce Any parLy ob[ecLlng Lo Lhe resulL of Lhe loLLery may appeal Lo
Lhe Commlsslon
(d) 1he candldaLes concerned shall be noLlfled by Lhe CommlLLee on Mass Medla or
Lhe rovlnclal LlecLlon Supervlsor as Lhe case maybe sufflclenLly ln advance and ln
wrlLlng of Lhe daLe of lssue and Lhe newspaper or publlcaLlon allocaLed Lo hlm and
Lhe Llme wlLhln whlch he musL submlL Lhe wrlLLen maLerlal for publlcaLlon ln Lhe
Comelec Space
xxx xxx xxx
Sec 8 uoJoe kefeteoce to cooJlJotes/lolltlcol lottles lo Newspopets no
newspaper or publlcaLlon shall allow Lo be prlnLed or publlshed ln Lhe news
oplnlon feaLures or oLher secLlons of Lhe newspaper or publlcaLlon accounLs or
commenLs whlch manlfesLly favor or oppose any candldaLe or pollLlcal parLy by
unduly or repeaLedly referrlng Lo or lncludlng Lhereln sald candldaLe or pollLlcal
parLy Powever unless Lhe facLs and clrcumsLances clearly lndlcaLe oLherwlse Lhe
Commlsslon wlll respecL Lhe deLermlnaLlon by Lhe publlsher and/or edlLors of Lhe
newspapers or publlcaLlons LhaL Lhe accounLs or vlews publlshed are slgnlflcanL
newsworLhy and of publlc lnLeresL (Lmphasls supplled)
ApparenLly ln lmplemenLaLlon of Lhls 8esoluLlon Comelec Lhrough Commlssloner
8egalado L Maambong senL ldenLlcal leLLers daLed 22 March 1993 Lo varlous
publlshers of newspapers llke Lhe 8osloess wotlJ Lhe lblllpploe 5tot Lhe Moloyo
and Lhe lblllpploe 1lmes Iootool all members of l 1hese leLLers read as follows
1hls ls Lo advlse you LhaL pursuanL Lo 8esoluLlon no 2772 of Lhe Commlsslon on
LlecLlons you are JltecteJ to ptovlJe ftee ptlot spoce of noL less Lhan one half (1/2)
page fot ose os comelec 5poce or slmllar Lo Lhe prlnL supporL whlch you have
exLended durlng Lhe May 11 1992 synchronlzed elecLlons whlch was 2 full pages
for each pollLlcal parLy fleldlng senaLorlal candldaLes from March 6 1993 Lo May 6
1993 Lo make known Lhelr quallflcaLlons Lhelr sLand on publlc lssues and Lhelr
plaLforms and programs of governmenL
We shall be lnformlng Lhe polltlcol pottles ooJ cooJlJotes to sobmlt Jltectly to yoo
Lhelr plctotes blographlcal Joto stooJ oo key pobllc lssoes and plotfotms of
qovetomeot elLher os tow Joto ot ln Lhe form of posltlves ot cometoteoJy
motetlols
lease be remlnded LhaL Lhe pollLlcal parLles/candldaLes may be accommodaLed ln
your publlcaLlon any day upon recelpL of Lhelr maLerlals unLll May 6 1993 whlch ls
Lhe lasL day for campalgnlng
We LrusL you Lo exLend your full supporL and cooperaLlon ln Lhls regard (Lmphasls
supplled)
ln Lhls eLlLlon for cettlototl and rohlblLlon wlLh prayer for Lhe lssuance of a
1emporary 8esLralnlng Crder l asks us Lo declare Comelec 8esoluLlon no 2772
unconsLlLuLlonal and vold on Lhe ground LhaL lL vlolaLes Lhe prohlblLlon lmposed by
Lhe ConsLlLuLlon upon Lhe governmenL and any of lLs agencles agalnsL Lhe Laklng of
prlvaLe properLy for publlc use wlLhouL [usL compensaLlon eLlLloner also conLends
LhaL Lhe 22 March 1993 leLLer dlrecLlves of Comelec requlrlng publlshers Lo glve
free Comelec Space and aL Lhe same Llme process raw daLa Lo make lL camera
ready consLlLuLe lmposlLlons of lnvolunLary servlLude conLrary Lo Lhe provlslons of
SecLlon 18 (2) ArLlcle lll of Lhe 1987 ConsLlLuLlon llnally l argues LhaL SecLlon 8
of Comelec 8esoluLlon no 2772 ls vlolaLlve of Lhe consLlLuLlonally guaranLeed
freedom of speech of Lhe press and of expresslon
1

Cn 20 Aprll 1993 Lhls CourL lssued a 1emporary 8esLralnlng Crder en[olnlng
Comelec from enforclng and lmplemenLlng SecLlon 2 of 8esoluLlon no 2772 as well
as Lhe Comelec dlrecLlves addressed Lo varlous prlnL medla enLerprlses all daLed 22
March 1993 1he CourL also requlred Lhe respondenL Lo flle a CommenL on Lhe
eLlLlon
1he Cfflce of Lhe SollclLor Ceneral flled lLs CommenL on behalf of respondenL
Comelec alleglng LhaL Comelec 8esoluLlon no 2772 does oot lmpose upon Lhe
publlshers any obllgaLlon Lo provlde free prlnL space ln Lhe newspapers as lL does
oot provlde any crlmlnal or admlnlsLraLlve sancLlon for noncompllance wlLh LhaL
8esoluLlon Accordlng Lo Lhe SollclLor Ceneral Lhe quesLloned 8esoluLlon merely
esLabllshed guldellnes Lo be followed ln connecLlon wlLh Lhe procuremenL of
Comelec space Lhe procedure for and mode of allocaLlon of such space Lo
candldaLes and Lhe condlLlons or requlremenLs for Lhe candldaLes uLlllzaLlon of Lhe
Comelec space procured AL Lhe same Llme however Lhe SollclLor Ceneral argues
LhaL eveo lf Lhe quesLloned 8esoluLlon and lLs lmplemenLlng leLLer dlrecLlves are
vlewed as mooJototy Lhe same would neverLheless be valld as an exerclse of Lhe
pollce power of Lhe SLaLe 1he SollclLor Ceneral also malnLalns LhaL SecLlon 8 of
143

8esoluLlon no 2772 ls a permlsslble exerclse of Lhe power of supervlslon or
regulaLlon of Lhe Comelec over Lhe communlcaLlon and lnformaLlon operaLlons of
prlnL medla enLerprlses durlng Lhe elecLlon perlod Lo safeguard and ensure a falr
lmparLlal and credlble elecLlon
2

AL Lhe oral hearlng of Lhls case held on 28 Aprll 1993 respondenL Comelec Lhrough
lLs Chalrman Pon 8ernardo ardo ln response Lo lnqulrles from Lhe Chlef !usLlce
and oLher Members of Lhe CourL sLaLed LhaL 8esoluLlon no 2772 parLlcularly
SecLlon 2 Lhereof and Lhe 22 March 1993 leLLers dlspaLched Lo varlous members of
peLlLloner l were oot lnLended Lo compel Lhose members Lo supply Comelec
wlLh free prlnL space Chalrman ardo represenLed Lo Lhe CourL LhaL 8esoluLlon and
Lhe relaLed leLLerdlrecLlves were merely deslgned Lo sollclL from Lhe publlshers Lhe
same free prlnL space whlch many publlshers had volunLarlly glven Lo Comelec
durlng Lhe elecLlon perlod relaLlng Lo Lhe 11 May 1992 elecLlons lndeed Lhe
Chalrman sLaLed LhaL Lhe Comelec would LhaL very afLernoon meeL and adopL an
approprlaLe amendlng or clarlfylng resoluLlon a cerLlfled Lrue copy of whlch would
forLhwlLh be flled wlLh Lhe CourL
Cn 3 May 1993 Lhe CourL recelved from Lhe Cfflce of Lhe SollclLor Ceneral a
manlfesLaLlon whlch aLLached a copy of Comelec 8esoluLlon no 2772A daLed 4
May 1993 1he operaLlve porLlon of Lhls 8esoluLlon follows
nCW 1PL8LlC8L pursuanL Lo Lhe powers vesLed ln lL by Lhe ConsLlLuLlon Lhe
Cmnlbus LlecLlon Code 8epubllc AcLs no 6646 and 7166 and oLher elecLlon laws
Lhe Commlsslon on LlecLlons 8LSCLvLu Lo clarlfy SecLlons 2 and 8 of 8es no 2772
as follows
1 SecLlon 2 of 8es no 2772 shall noL be consLrued Lo mean as requlrlng publlshers
of Lhe dlfferenL mass medla prlnL publlcaLlons Lo provlde prlnL space under paln of
prosecuLlon wheLher admlnlsLraLlve clvll or crlmlnal Lhere belng no sancLlon or
penalLy for vlolaLlon of sald SecLlon provlded for elLher ln sald 8esoluLlon or ln
SecLlon 90 of 8aLas ambansa 8lg 881 oLherwlse known as Lhe Cmnlbus LlecLlon
Code on Lhe granL of Comelec space
2 SecLlon 8 of 8es no 2772 shall noL be consLrued Lo mean as consLlLuLlng prlor
resLralnL on Lhe parL of publlshers wlLh respecL Lo Lhe prlnLlng or publlcaLlon of
maLerlals ln Lhe news oplnlon feaLures or oLher secLlons of Lhelr respecLlve
publlcaLlons or oLher accounLs or commenLs lL belng clear from Lhe lasL senLence of
sald SecLlon 8 LhaL Lhe Commlsslon shall ooless tbe focts ooJ cltcomstooces cleotly
loJlcote otbetwlse tespect tbe Jetetmlootloo by tbe pobllsbet ooJ/ot eJltots of
tbe oewspopets ot pobllcotloos tbot tbe occooots ot vlews pobllsbeJ ote slqolflcoot
oewswottby ooJ of pobllc lotetest
1hls 8esoluLlon shall Lake effecL upon approval (Lmphasls ln Lhe orlglnal)
Whlle aL Lhls polnL Lhe CourL could perhaps slmply dlsmlss Lhe eLlLlon for
cettlototl and rohlblLlon as havlng become mooL and academlc we conslder lL noL
lnapproprlaLe Lo pass upon Lhe flrsL consLlLuLlonal lssue ralsed ln Lhls case Cur
hope ls Lo puL Lhls lssue Lo resL and prevenL lLs resurrecLlon
SecLlon 2 of 8esoluLlon no 2772 ls noL a model of clarlLy ln expresslon SecLlon 1 of
8esoluLlon no 2772A dld noL Lry Lo redrafL SecLlon 2 accordlngly SecLlon 2 of
8esoluLlon no 2772 perslsLs ln lLs orlglnal form 1hus we musL polnL ouL LhaL as
presenLly worded and ln parLlcular as lnLerpreLed and applled by Lhe Comelec lLself
ln lLs 22 March 1993 leLLerdlrecLlves Lo newspaper publlshers SecLlon 2 of
8esoluLlon no 2772 ls clearly suscepLlble of Lhe readlng LhaL peLlLloner l has
glven lL 1haL 8esoluLlon no 2772 does noL ln express Lerms LhreaLen publlshers
who would dlsregard lL or lLs lmplemenLlng leLLers wlLh some crlmlnal or oLher
sancLlon does oot by lLself demonsLraLe LhaL Lhe Comelecs orlglnal lnLenLlon was
slmply Lo sollclL or requesL volunLary donaLlons of prlnL space from publlshers A
wrlLLen communlcaLlon offlclally Jltectloq a prlnL medla company Lo sopply ftee
ptlot spoce dlspaLched by a governmenL (here a consLlLuLlonal) agency and slgned
by a member of Lhe Commlsslon presumably legally auLhorlzed Lo do so ls bound Lo
produce a coerclve effecL upon Lhe company so addressed 1haL Lhe agency may
noL be legally auLhorlzed Lo lmpose or cause Lhe lmposlLlon of crlmlnal or oLher
sancLlons for dlsregard of such dlrecLlons only aggravaLes Lhe consLlLuLlonal
dlfflculLles lnhearlng ln Lhe presenL slLuaLlon 1he enacLmenL or addlLlon of such
sancLlons by Lhe leglslaLlve auLhorlLy lLself would be open Lo serlous consLlLuLlonal
ob[ecLlon
1o compel prlnL medla companles to Jooote Comelecspace of Lhe dlmenslons
speclfled ln SecLlon 2 of 8esoluLlon no 2772 (noL less Lhan onehalf page) amounLs
Lo Laklng of prlvaLe personal properLy for publlc use or purposes SecLlon 2 falled
Lo speclfy Lhe lnLended ftepoeocy of such compulsory donaLlon only ooce durlng
Lhe perlod from 6 March 1993 (or 21 March 1993) unLll 12 May 1993? or everyday
or once a week? or as ofLen as Comelec may dlrecL durlng Lhe same perlod? 1he
exLenL of Lhe Laklng or deprlvaLlon ls noL lnsubsLanLlal Lhls ls noL a case of a Je
mlolmls Lemporary llmlLaLlon or resLralnL upon Lhe use of prlvaLe properLy 1he
moneLary value of Lhe compulsory donaLlon measured by Lhe adverLlslng raLes
ordlnarlly charged by newspaper publlshers wheLher ln clLles or ln nonurban areas
may be very subsLanLlal lndeed
1he Laklng of prlnL space here soughL Lo be effecLed may flrsL be appralsed under
Lhe rubrlc of exproprlaLlon of prlvaLe personal properLy for publlc use 1he
Lhreshold requlslLes for a lawful Laklng of prlvaLe properLy for publlc use need Lo be
examlned here one ls Lhe oecesslty fot tbe tokloq anoLher ls Lhe leqol ootbotlty to
effect tbe tokloq 1he elemenL of necesslLy for Lhe Laklng has noL been shown by
respondenL Comelec lL has noL been suggesLed LhaL Lhe members of l are
unwllllng to sell prlnL space aL Lhelr normal raLes Lo Comelec for elecLlon purposes
lndeed Lhe unwllllngness or relucLance of Comelec to boy prlnL space lles aL Lhe
hearL of Lhe problem
3
Slmllarly lL has noL been suggesLed leL alone demonsLraLed
LhaL Comelec has been granLed Lhe power of emlnenL domaln elLher by Lhe
ConsLlLuLlon or by Lhe leglslaLlve auLhorlLy A reasonable relaLlonshlp beLween LhaL
144

power and Lhe enforcemenL and admlnlsLraLlon of elecLlon laws by Comelec musL
be shown lL ls noL casually Lo be assumed
1haL Lhe Laklng ls deslgned Lo subserve publlc use ls noL conLesLed by peLlLloner
l We noLe only LhaL under SecLlon 3 of 8esoluLlon no 2772 Lhe free Comelec
space soughL by Lhe respondenL Commlsslon would be used noL only for lnformlng
Lhe publlc abouL Lhe ldenLlLles quallflcaLlons and programs of governmenL of
candldaLes for elecLlve offlce buL also for dlssemlnaLlon of vlLal elecLlon
lnformaLlon (lncludlng presumably clrculars regulaLlons noLlces dlrecLlves eLc
lssued by Comelec) lL seems Lo Lhe CourL a maLLer of [udlclal noLlce LhaL
governmenL offlces and agencles (lncludlng Lhe Supreme CourL) slmply purchase
prlnL space ln Lhe ordlnary course of evenLs when Lhelr rules and regulaLlons
clrculars noLlces and so forLh need offlclally Lo be broughL Lo Lhe aLLenLlon of Lhe
general publlc
1he Laklng of prlvaLe properLy for publlc use ls of course auLhorlzed by Lhe
ConsLlLuLlon buL noL wlLhouL paymenL of [usL compensaLlon (ArLlcle lll SecLlon
9) And apparenLly Lhe necesslLy of paylng compensaLlon for Comelec space ls
preclsely whaL ls soughL Lo be avolded by respondenL Commlsslon wheLher SecLlon
2 of 8esoluLlon no 2772 ls read as peLlLloner l reads lL as an asserLlon of
auLhorlLy Lo requlre newspaper publlshers Lo donaLe free prlnL space for Comelec
purposes or as an exhorLaLlon or perhaps an appeal Lo publlshers Lo donaLe free
prlnL space as SecLlon 1 of 8esoluLlon no 2772A aLLempLs Lo suggesL 1here ls
noLhlng aL all Lo prevenL newspaper and magazlne publlshers from volunLarlly
glvlng free prlnL space Lo Comelec for Lhe purposes conLemplaLed ln 8esoluLlon no
2772 SecLlon 2 of 8esoluLlon no 2772 does noL however provlde a consLlLuLlonal
basls for compelllng publlshers agalnsL Lhelr wlll ln Lhe klnd of facLual conLexL here
presenL Lo provlde free prlnL space for Comelec purposes SecLlon 2 does noL
consLlLuLe a valld exerclse of Lhe power of emlnenL domaln
We would noLe LhaL Lhe rullng here lald down by Lhe CourL ls enLlrely ln llne wlLh
Lhe Lheory of democraLlc represenLaLlve governmenL 1he economlc cosLs of
lnformlng Lhe general publlc abouL Lhe quallflcaLlons and programs of Lhose seeklng
elecLlve offlce are mosL approprlaLely dlsLrlbuLed as wldely as posslble LhroughouL
our socleLy by Lhe uLlllzaLlon of publlc funds especlally funds ralsed by LaxaLlon
raLher Lhan casL solely on one small secLor of socleLy le prlnL medla enLerprlses
1he beneflLs whlch flow from a helghLened level of lnformaLlon on and Lhe
awareness of Lhe elecLoral process are commonly LhoughL Lo be communlLywlde
Lhe burdens should be allocaLed on Lhe same basls
As earller noLed Lhe SollclLor Ceneral also conLended LhaL SecLlon 2 of 8esoluLlon
no 2772 even lf read as compelllng publlshers Lo donaLe Comelec space may
be susLalned as a valld exerclse of Lhe pollce power of Lhe sLaLe 1hls argumenL was
however made Loo casually Lo requlre prolonged conslderaLlon on our parL llrsLly
Lhere was no efforL (and apparenLly no lncllnaLlon on Lhe parL of Comelec) Lo show
LhaL Lhe pollce power essenLlally a power of leglslaLlon has been
consLlLuLlonally delegaLed Lo respondenL Commlsslon
4
Secondly whlle prlvaLe
properLy may lndeed be valldly Laken ln Lhe leglLlmaLe exerclse of Lhe pollce power
of Lhe sLaLe Lhere was no aLLempL Lo show compllance ln Lhe lnsLanL case wlLh Lhe
requlslLes of a lawful Laklng under Lhe pollce power
3

SecLlon 2 of 8esoluLlon no 2772 ls a blunL and heavy lnsLrumenL LhaL purporLs
wlLhouL a showlng of exlsLence of a naLlonal emergency or oLher lmperlous publlc
necesslLy lndlscrlmlnaLely and wlLhouL regard Lo Lhe lndlvldual buslness condlLlon
of parLlcular newspapers or magazlnes locaLed ln dlfferlng parLs of Lhe counLry Lo
Lake prlvaLe properLy of newspaper or magazlne publlshers no aLLempL was made
Lo demonsLraLe LhaL a real and palpable or urgenL necesslLy for Lhe Laklng of prlnL
space confronLed Lhe Comelec and LhaL SecLlon 2 of 8esoluLlon no 2772 was lLself
Lhe only reasonable and callbraLed response Lo such necesslLy avallable Lo Lhe
Comelec SecLlon 2 does noL consLlLuLe a valld exerclse of Lhe pollce power of Lhe
SLaLe
We Lurn Lo SecLlon 8 of 8esoluLlon no 2772 whlch needs Lo be quoLed ln full agaln
Sec 8 uoJoe kefeteoce to cooJlJotes/lolltlcol lottles lo Newspopets no
newspaper or publlcaLlon shall allow Lo be prlnLed or publlshed ln Lhe news
oplnlon feaLures or oLher secLlons of Lhe newspaper or publlcaLlon accounLs or
commenLs whlch manlfesLly favor or oppose any candldaLe or pollLlcal parLy by
unduly or repeaLedly referrlng Lo or lncludlng Lhereln sald candldaLe or pollLlcal
parLy Powever unless Lhe facLs and clrcumsLances clearly lndlcaLe oLherwlse Lhe
Commlsslon wlll respecL Lhe deLermlnaLlon by Lhe publlsher and/or edlLors of Lhe
newspapers or publlcaLlons LhaL Lhe accounLs or vlews publlshed are slgnlflcanL
newsworLhy and of publlc lnLeresL
lL ls noL easy Lo undersLand why SecLlon 8 was lncluded aL all ln 8esoluLlon no
2772 ln any case SecLlon 8 should be vlewed ln Lhe conLexL of our declslon ln
Notloool ltess clob v commlssloo oo lectloos
6
1here Lhe CourL susLalned Lhe
consLlLuLlonallLy of SecLlon 11 (b) of 8A no 6646 known as Lhe LlecLoral 8eforms
Law of 1987 whlch prohlblLs Lhe sale or donaLlon of prlnL space and alrLlme for
campalgn or oLher pollLlcal purposes excepL Lo Lhe Comelec ln dolng so Lhe CourL
carefully dlsLlngulshed (a) polJ polltlcol oJvettlsemeots whlch are reached by Lhe
prohlblLlon of SecLlon 11 (b) from (b) Lhe reporLlng of oews commeototles ooJ
exptessloos of bellef ot oploloo by reporLers broadcasLers edlLors commenLaLors
or columnlsLs whlch foll ootslJe Lhe scope of SecLlon 11 (b) and whlch are proLecLed
by Lhe consLlLuLlonal guaranLees of freedom of speech and of Lhe press
Secondly and more lmporLanLly SecLlon 11 (b) ls llmlLed ln lLs scope of appllcaLlon
Analysls of 5ectloo 11 (b) shows LhaL lL potpotts to opply ooly to tbe potcbose ooJ
sole lncludlng purchase and sale dlsgulsed as a donaLlon of prlnL space and alr Llme
fot compolqo ot otbet polltlcol potposes 5ectloo 11 (b) Joes oot potpott ln any way
to testtlct Lhe tepottloq by oewspopets or toJlo or televlsloo sLaLlons of oews ot
oewswottby eveots telotloq to cooJlJotes Lhelr quallflcaLlons pollLlcal parLles and
programs of governmenL Moreover 5ectloo 11 (b) Joes oot teocb commeototles
143

ooJ exptessloos of bellef ot oploloo by tepottets ot btooJcostet ot eJltots ot
commeototots ot colomolsts lo tespect of cooJlJotes tbelt poollflcotloos ooJ
ptoqtoms ooJ so fottb so long aL leasL as such commenLs oplnlons and bellefs are
noL ln facL adverLlsemenLs for parLlcular candldaLes coverLly pald for ln sum
SecLlon 11 (b) ls noL Lo be read as reachlng any reporL or commenLary or oLher
coverage LhaL ln responslble medla ls noL pald for by candldaLes for pollLlcal offlce
we teoJ 5ectloo 11 (b) os JeslqoeJ to covet ooly polJ polltlcol oJvettlsemeots of
pottlcolot cooJlJotes
1he above llmlLaLlon ln scope of appllcaLlon of SecLlon 11 (b) LhaL lL does noL
resLrlcL elLher Lhe reporLlng of or Lhe expresslon of bellef or oplnlon or commenL
upon Lhe quallflcaLlons and programs and acLlvlLles of any and all candldaLes for
offlce consLlLuLes Lhe crlLlcal dlsLlncLlon whlch musL be made beLween Lhe
lnsLanL case and LhaL of 5oolJoJ v commlssloo oo lectloos
7
(ClLaLlons
omlLLed emphasls supplled)
SecLlon 8 of 8esoluLlon no 2772 appears Lo represenL Lhe efforL of Lhe Comelec Lo
esLabllsh a guldellne for lmplemenLaLlon of Lhe abovequoLed dlsLlncLlon and
docLrlne ln Notloool ltess clob an efforL noL blessed wlLh evldenL success SecLlon 2
of 8esoluLlon no 2772A whlle posslbly helpful does noL add subsLanLlally Lo Lhe
uLlllLy of SecLlon 8 of 8esoluLlon no 2772 1he dlsLlncLlon beLween pald pollLlcal
adverLlsemenLs on Lhe one hand and news reporLs commenLarles and expresslons
of bellef or oplnlon by reporLers broadcasLers edlLors eLc on Lhe oLher hand can
reallsLlcally be glven operaLlve meanlng only ln acLual cases or conLroversles on a
caseLocase basls ln Lerms of very speclflc seLs of facLs
AL all evenLs Lhe CourL ls bound Lo noLe LhaL l has falled Lo allege any speclflc
afflrmaLlve acLlon on Lhe parL of Comelec deslgned Lo enforce or lmplemenL SecLlon
8 l has noL clalmed LhaL lL or any of lLs members has susLalned acLual or
lmmlnenL ln[ury by reason of Comelec acLlon under SecLlon 8 uL a llLLle dlfferenLly
Lhe CourL conslders LhaL Lhe preclse consLlLuLlonal lssue here soughL Lo be ralsed
wheLher or noL SecLlon 8 of 8esoluLlon no 2772 consLlLuLes a permlsslble exerclse
of Lhe Comelecs power under ArLlcle lx SecLlon 4 of Lhe ConsLlLuLlon Lo
supervlse or regulaLe Lhe en[oymenL or uLlllzaLlon of all franchlse or permlLs for Lhe
operaLlon of medla of communlcaLlon or lnformaLlon for Lhe purpose of
ensurlng equal opporLunlLy Llme and space and Lhe rlghL of reply lncludlng
reasonable equal raLes Lherefore for publlc lnformaLlon campalgns and forums
among candldaLes ln connecLlon wlLh Lhe ob[ecLlve of holdlng free orderly honesL
peaceful and credlble elecLlons
ls noL rlpe for [udlclal revlew for lack of an acLual case or conLroversy lnvolvlng as
Lhe very lls moto Lhereof Lhe consLlLuLlonallLy of SecLlon 8
Summarlzlng our concluslons
1 SecLlon 2 of 8esoluLlon no 2772 ln lLs presenL form and as lnLerpreLed by
Comelec ln lLs 22 March 1993 leLLer dlrecLlves purporLs Lo requlre prlnL medla
enLerprlses Lo donaLe free prlnL space Lo Comelec As such SecLlon 2 suffers from
a faLal consLlLuLlonal vlce and musL be seL aslde and nulllfled
2 1o Lhe exLenL lL perLalns Lo SecLlon 8 of 8esoluLlon no 2772 Lhe eLlLlon for
cettlototl and rohlblLlon musL be dlsmlssed for lack of an acLual [usLlclable case or
conLroversy
WPL8LlC8L for all Lhe foregolng Lhe eLlLlon for cettlototl and rohlblLlon ls
C8An1Lu ln parL and SecLlon 2 of 8esoluLlon no 2772 ln lLs presenL form and Lhe
relaLed leLLerdlrecLlves daLed 22 March 1993 are hereby SL1 ASluL as null and
vold and Lhe 1emporary 8esLralnlng Crder ls hereby MAuL L8MAnLn1 1he
eLlLlon ls ulSMlSSLu ln parL Lo Lhe exLenL lL relaLes Lo SecLlon 8 of 8esoluLlon no
2772 no pronouncemenL as Lo cosLs
Notvoso cI loJlllo keqoloJo uovlJe It kometo 8elloslllo Melo looo vltoq
kopoooo MeoJozo ooJ ltooclsco II coocot
Oolosoo I ls oo leove

Gk No 92389 September 11 1991
8INA VS DCMINGC
A8AS Ip
1he only plvoLal lssue before us ls wheLher or noL 8esoluLlon no 60 reenacLed
under 8esoluLlon no 243 of Lhe MunlclpallLy of MakaLl ls a valld exerclse of pollce
power under Lhe general welfare clause
1he perLlnenL facLs are
Cn SepLember 27 1988 peLlLloner MunlclpallLy Lhrough lLs Councll approved
8esoluLlon no 60 whlch reads
A 8LSCLu1lCn 1C CCnll8M Anu/C8 8A1ll? 1PL CnCClnC 8u8lAL ASSlS1AnCL
8CC8AM lnl1lA1Lu 8? 1PL ClllCL Cl 1PL MA?C8 Cl Lx1LnulnC llnAnClAL
ASSlS1AnCL Cl llvL Punu8Lu LSCS (30000) 1C A 8L8LAvLu lAMlL? lunuS
1C 8L 1AkLn Cu1 Cl unA8C8lA1Lu AvAlLA8LL lunuS LxlS1lnC ln 1PL
MunlClAL 18LASu8? (8ollo Annnex A p 39)
Cuallfled beneflclarles under Lhe 8urlal AsslsLance rogram are bereaved famllles
of MakaLl whose gross famlly lncome does noL exceed Lwo Lhousand pesos
(200000) a monLh 1he beneflclarles upon fulflllmenL of oLher requlremenLs
would recelve Lhe amounL of flve hundred pesos (30000) cash rellef from Lhe
MunlclpallLy of MakaLl (8eno Annex 13 p 41)
MeLro Manlla Commlsslon approved 8esoluLlon no 60 1hereafLer Lhe munlclpal
secreLary cerLlfled a dlsbursemenL flred of four hundred Lhousand pesos
(40000000) for Lhe lmplemenLaLlon of Lhe 8urlal AsslsLance rogram (8ollo
Annex C p 43)
8esoluLlon no 60 was referred Lo respondenL Commlsslon on AudlL (CCA) for lLs
expecLed allowance ln audlL 8ased on lLs prellmlnary flndlngs respondenL CCA
dlsapproved 8esoluLlon no 60 and dlsallowed ln audlL Lhe dlsbursemenL of flnds for
Lhe lmplemenLaLlon Lhereof (8ollo Annex u 44)
146

1wo leLLers for reconslderaLlon (Annexes L and l 8ollo pp 43 and 48
respecLlvely) flled by peLlLloners Mayor !e[omar 8lnay were denled by respondenL
ln lLs ueclslon no 1139 ln Lhe followlng manner
?our requesL for reconslderaLlon ls predlcaLed on Lhe followlng grounds Lo wlL
1 Sub[ecL 8esoluLlon no 60 s 1988 of Lhe Munlclpal Councll of MakaLl and Lhe
lnLended dlsbursemenLs fall wlLhln Lhe Lwln prlnclples of pollce power and parens
paLrlae and
2 1he MeLropollLan Manlla Commlsslon (MMC) under a CerLlflcaLlon daLed !une 3
1989 has already approprlaLed Lhe amounL of 40000000 Lo lmplemenL Lhe ld
resoluLlon and Lhe only funcLlon of CCA on Lhe maLLer ls Lo allow Lhe flnanclal
asslsLance ln quesLlon
1he flrsL conLenLlon ls belleved unLenable Sufflce lL Lo sLaLe LhaL
a sLaLuLe or ordlnance musL have a real subsLanLlal or raLlonal relaLlon Lo Lhe publlc
safeLy healLh morals or general welfare Lo be susLalned as a leglLlmaLe exerclse of
Lhe pollce power 1be mete ossettloo by tbe leqlslotote tbot o stotote telotes to tbe
pobllc beoltb sofety ot welfote Joes oot lo ltself btloq tbe stotote wltblo tbe pollce
powet of o stote fot tbete most olwoys be oo obvloos ooJ teol coooectloo betweeo
tbe octool ptovlsloos of o pollce teqolotloos ooJ lts ovoweJ potpose ooJ tbe
teqolotloo oJopteJ most be teosooobly oJopteJ to occompllsb tbe eoJ sooqbt to be
ottoloeJ 16 Am !ur 2d pp 342343 emphasls supplled)
Pere we see no percepLlble connecLlon or relaLlon beLween Lhe ob[ecLlve soughL Lo
be aLLalned under 8esoluLlon no 60 s 1988 sopto and Lhe alleged publlc safeLy
general welfare eLc of Lhe lnhablLanLs of MakaLl
AnenL Lhe second conLenLlon leL lL be sLressed LhaL 8esoluLlon no 60 ls sLlll sub[ecL
Lo Lhe llmlLaLlon LhaL Lhe expendlLure covered Lhereby should be for a publlc
purpose le LhaL Lhe dlsbursemenL of Lhe amounL of 30000 as burlal asslsLance
Lo a bereaved famlly of Lhe MunlclpallLy of MakaLl or a LoLal of 40000000
approprlaLed under Lhe 8esoluLlon should be for Lhe beneflL of Lhe whole lf noL
Lhe ma[orlLy of Lhe lnhablLanLs of Lhe MunlclpallLy and noL for Lhe beneflL of only a
few lndlvlduals as ln Lhe presenL case Cn Lhls polnL governmenL funds or properLy
shall be spenL or used solely for publlc purposes (Cf SecLlon 42 u 1443) (pp
3031 8ollo)
8enL on pursulng Lhe 8urlal AsslsLance rogram Lhe MunlclpallLy of MakaLl Lhrough
lLs Councll passed 8esoluLlon no 243 reafflrmlng 8esoluLlon no 60 (8ollo Annex
P p 32)
Powever Lhe 8urlal AsslsLance rogram has been sLayed by CCA ueclslon no 1139
eLlLloner Lhrough lLs Mayor was consLralned Lo flle Lhls speclal clvll acLlon of
cerLlorarl praylng LhaL CCA ueclslon no 1139 be seL aslde as null and vold
1he pollce power ls a governmenLal funcLlon an lnherenL aLLrlbuLe of soverelgnLy
whlch was born wlLh clvlllzed governmenL lL ls founded largely on Lhe maxlms Slc
uLere Luo eL ahenum non laedas and Salus popull esL suprema lex lLs fundamenLal
purpose ls securlng Lhe general welfare comforL and convenlence of Lhe people
ollce power ls lnherenL ln Lhe sLaLe buL noL ln munlclpal corporaLlons (8alaculL v
Cll of Agusan del norLe 163 SC8A 182) 8efore a munlclpal corporaLlon may
exerclse such power Lhere musL be a valld delegaLlon of such power by Lhe
leglslaLure whlch ls Lhe reposlLory of Lhe lnherenL powers of Lhe SLaLe A valld
delegaLlon of pollce power may arlse from express delegaLlon or be lnferred from
Lhe mere facL of Lhe creaLlon of Lhe munlclpal corporaLlon and as a general rule
munlclpal corporaLlons may exerclse pollce powers wlLhln Lhe falr lnLenL and
purpose of Lhelr creaLlon whlch are reasonably proper Lo glve effecL Lo Lhe powers
expressly granLed and sLaLuLes conferrlng powers on publlc corporaLlons have been
consLrued as empowerlng Lhem Lo do Lhe Lhlngs essenLlal Lo Lhe en[oymenL of llfe
and deslrable for Lhe safeLy of Lhe people (62 C!S p 277) 1he socalled lnferred
pollce powers of such corporaLlons are as much delegaLed powers as are Lhose
conferred ln express Lerms Lhe lnference of Lhelr delegaLlon growlng ouL of Lhe facL
of Lhe creaLlon of Lhe munlclpal corporaLlon and Lhe addlLlonal facL LhaL Lhe
corporaLlon can only fully accompllsh Lhe ob[ecLs of lLs creaLlon by exerclslng such
powers (Crawfordsvllle vs 8raden 28 nL 849) lurLhermore munlclpal
corporaLlons as governmenLal agencles musL have such measures of Lhe power as
are necessary Lo enable Lhem Lo perform Lhelr governmenLal funcLlons 1he power
ls a conLlnulng one founded on publlc necesslLy (62 C!S p 273) 1hus noL only
does Lhe SLaLe effecLuaLe lLs purposes Lhrough Lhe exerclse of Lhe pollce power buL
Lhe munlclpallLy does also (uS v Salaverla 39 hll 102)
Munlclpal governmenLs exerclse Lhls power under Lhe general welfare clause
pursuanL LhereLo Lhey are cloLhed wlLh auLhorlLy Lo enacL such ordlnances and
lssue such regulaLlons as may be necessary Lo carry ouL and dlscharge Lhe
responslblllLles conferred upon lL by law and such as shall be necessary and proper
Lo provlde for Lhe healLh safeLy comforL and convenlence malnLaln peace and
order lmprove publlc morals promoLe Lhe prosperlLy and general welfare of Lhe
munlclpallLy and Lhe lnhablLanLs Lhereof and lnsure Lhe proLecLlon of properLy
Lhereln (SecLlons 91 149 177 and 208 8 337) And under SecLlon 7 of 8 337
every local governmenL unlL shall exerclse Lhe powers expressly granLed Lhose
necessarlly lmplled Lherefrom as well as powers necessary and proper for
governance such as Lo promoLe healLh and safeLy enhance prosperlLy lmprove
morals and malnLaln peace and order ln Lhe local governmenL unlL and preserve
Lhe comforL and convenlence of Lhe lnhablLanLs Lhereln
ollce power ls Lhe power Lo prescrlbe regulaLlons Lo promoLe Lhe healLh morals
peace educaLlon good order or safeLy and general welfare of Lhe people lL ls Lhe
mosL essenLlal lnslsLenL and llllmlLable of powers ln a sense lL ls Lhe greaLesL and
mosL powerful aLLrlbuLe of Lhe governmenL lL ls elasLlc and musL be responslve Lo
varlous soclal condlLlons (Sangalang eL al vs lAC 176 SC8A 719) Cn lL depends
Lhe securlLy of soclal order Lhe llfe and healLh of Lhe clLlzen Lhe comforL of an
exlsLence ln a Lhlckly populaLed communlLy Lhe en[oymenL of prlvaLe and soclal
llfe and Lhe beneflclal use of properLy and lL has been sald Lo be Lhe very
147

foundaLlon on whlch our soclal sysLem resLs (16 C!S 896) Powever lL ls noL
conflned wlLhln narrow clrcumsLances of precedenLs resLlng on pasL condlLlons lL
musL follow Lhe legal progress of a democraLlc way of llfe (Sangalang eL al vs lAC
sopto)
ln Lhe case aL bar CCA ls of Lhe poslLlon LhaL Lhere ls no percepLlble connecLlon or
relaLlon beLween Lhe ob[ecLlve soughL Lo be aLLalned under 8esoluLlon no 60 s
1988 supra and Lhe alleged publlc safeLy general welfare eLc of Lhe lnhablLanLs
of MakaLl (8ollo Annex C p 31)
ApparenLly CCA Lrles Lo redeflne Lhe scope of pollce power by clrcumscrlblng lLs
exerclse Lo publlc safeLy general welfare eLc of Lhe lnhablLanLs of MakaLl
ln Lhe case of 5ooqolooq vs lAc sopto We ruled LhaL pollce power ls noL capable of
an exacL deflnlLlon buL has been purposely velled ln general Lerms Lo underscore
lLs all comprehenslveness lLs scope overexpandlng Lo meeL Lhe exlgencles of Lhe
Llmes even Lo anLlclpaLe Lhe fuLure where lL could be done provldes enough room
for an efflclenL and flexlble response Lo condlLlons and clrcumsLances Lhus assurlng
Lhe greaLesL beneflLs
1he pollce power of a munlclpal corporaLlon ls broad and has been sald Lo be
commensuraLe wlLh buL noL Lo exceed Lhe duLy Lo provlde for Lhe real needs of
Lhe people ln Lhelr healLh safeLy comforL and convenlence as conslsLenLly as may
be wlLh prlvaLe rlghLs lL exLends Lo all Lhe greaL publlc needs and ln a broad sense
lncludes all leglslaLlon and almosL every funcLlon of Lhe munlclpal governmenL lL
covers a wlde scope of sub[ecLs and whlle lL ls especlally occupled wlLh whaLever
affecLs Lhe peace securlLy healLh morals and general welfare of Lhe communlLy lL
ls noL llmlLed LhereLo buL ls broadened Lo deal wlLh condlLlons whlch exlsLs so as Lo
brlng ouL of Lhem Lhe greaLesL welfare of Lhe people by promoLlng publlc
convenlence or general prosperlLy and Lo everyLhlng worLhwhlle for Lhe
preservaLlon of comforL of Lhe lnhablLanLs of Lhe corporaLlon (62 C!S Sec 128)
1hus lL ls deemed lnadvlsable Lo aLLempL Lo frame any deflnlLlon whlch shall
absoluLely lndlcaLe Lhe llmlLs of pollce power
CCAs addlLlonal ob[ecLlon ls based on lLs conLenLlon LhaL 8esoluLlon no 60 ls sLlll
sub[ecL Lo Lhe llmlLaLlon LhaL Lhe expendlLure covered Lhereby should be for a
publlc purpose should be for Lhe beneflL of Lhe whole lf noL Lhe ma[orlLy of Lhe
lnhablLanLs of Lhe MunlclpallLy and noL for Lhe beneflL of only a few lndlvlduals as ln
Lhe presenL case (8ollo Annex C p 31)
CCA ls noL aLLuned Lo Lhe changlng of Lhe Llmes ubllc purpose ls noL
unconsLlLuLlonal merely because lL lncldenLally beneflLs a llmlLed number of
persons As correcLly polnLed ouL by Lhe Cfflce of Lhe SollclLor Ceneral Lhe drlfL ls
Lowards soclal welfare leglslaLlon geared Lowards sLaLe pollcles Lo provlde adequaLe
soclal servlces (SecLlon 9 ArL ll ConsLlLuLlon) Lhe promoLlon of Lhe general welfare
(SecLlon 3 lbld) soclal [usLlce (SecLlon 10 lbld) as well as human dlgnlLy and respecL
for human rlghLs (SecLlon 11 lblJ (CommenL p 12)
1he care for Lhe poor ls generally recognlzed as a publlc duLy 1he supporL for Lhe
poor has long been an accepLed exerclse of pollce power ln Lhe promoLlon of Lhe
common good
1here ls no vlolaLlon of Lhe equal proLecLlon clause ln classlfylng paupers as sub[ecL
of leglslaLlon aupers may be reasonably classlfled ulfferenL groups may recelve
varylng LreaLmenL reclous Lo Lhe hearLs of our leglslaLors down Lo our local
councllors ls Lhe welfare of Lhe paupers 1hus sLaLuLes have been passed glvlng
rlghLs and beneflLs Lo Lhe dlsabled emanclpaLlng Lhe LenanLfarmer from Lhe
bondage of Lhe soll houslng Lhe urban poor eLc
8esoluLlon no 60 reenacLed under 8esoluLlon no 243 of Lhe MunlclpallLy of
MakaLl ls a paragon of Lhe conLlnulng program of our governmenL Lowards soclal
[usLlce 1he 8urlal AsslsLance rogram ls a rellef of pauperlsm Lhough noL compleLe
1he loss of a member of a famlly ls a palnful experlence and lL ls more palnful for
Lhe poor Lo be flnanclally burdened by such deaLh 8esoluLlon no 60 vlvlfles Lhe
very words of Lhe laLe resldenL 8amon Magsaysay Lhose who have less ln llfe
should have more ln law 1hls declslon however musL noL be Laken as a precedenL
or as an offlclal goslgnal for munlclpal governmenLs Lo embark on a phllanLhroplc
orgy of lnordlnaLe doleouLs for moLlves pollLlcal or oLherwlse
8LMlSLS CCnSluL8Lu and wlLh Lhe aforemenLloned caveaL Lhls peLlLlon ls
hereby C8An1Lu and Lhe Commlsslon on AudlLs ueclslon no 1139 ls hereby SL1
ASluL
SC C8uL8Lu

CAkLCS SU9LkDkUG CCk9 VS DSJD

AZCunA I
1hls ls a peLlLlon
1
for rohlblLlon wlLh rayer for rellmlnary ln[uncLlon assalllng Lhe
consLlLuLlonallLy of SecLlon 4(a) of 8epubllc AcL (8A) no 9237
2
oLherwlse known
as Lhe Lxpanded Senlor ClLlzens AcL of 2003
eLlLloners are domesLlc corporaLlons and proprleLors operaLlng drugsLores ln Lhe
hlllpplnes
ubllc respondenLs on Lhe oLher hand lnclude Lhe ueparLmenL of Soclal Welfare
and uevelopmenL (uSWu) Lhe ueparLmenL of PealLh (uCP) Lhe ueparLmenL of
llnance (uCl) Lhe ueparLmenL of !usLlce (uC!) and Lhe ueparLmenL of lnLerlor and
Local CovernmenL (ulLC) whlch have been speclflcally Lasked Lo monlLor Lhe
drugsLores' compllance wlLh Lhe law promulgaLe Lhe lmplemenLlng rules and
regulaLlons for Lhe effecLlve lmplemenLaLlon of Lhe law and prosecuLe and revoke
Lhe llcenses of errlng drugsLore esLabllshmenLs
1he anLecedenLs are as follows
Cn lebruary 26 2004 8A no 9237 amendlng 8A no 7432
3
was slgned lnLo law
by resldenL Clorla MacapagalArroyo and lL became effecLlve on March 21 2004
SecLlon 4(a) of Lhe AcL sLaLes
148

SLC 4 ltlvlleqes fot tbe 5eolot cltlzeos 1he senlor clLlzens shall be enLlLled Lo Lhe
followlng
(a) Lhe granL of LwenLy percenL (20) dlscounL from all esLabllshmenLs relaLlve Lo
Lhe uLlllzaLlon of servlces ln hoLels and slmllar lodglng esLabllshmenLs resLauranLs
and recreaLlon cenLers and purchase of medlclnes ln all esLabllshmenLs for Lhe
excluslve use or en[oymenL of senlor clLlzens lncludlng funeral and burlal servlces
for Lhe deaLh of senlor clLlzens

1he esLabllshmenL may clalm Lhe dlscounLs granLed under (a) (f) (g) and (h) as Lax
deducLlon based on Lhe neL cosL of Lhe goods sold or servlces rendered ltovlJeJ
1haL Lhe cosL of Lhe dlscounL shall be allowed as deducLlon from gross lncome for
Lhe same Laxable year LhaL Lhe dlscounL ls granLed ltovlJeJ fottbet 1haL Lhe LoLal
amounL of Lhe clalmed Lax deducLlon neL of value added Lax lf appllcable shall be
lncluded ln Lhelr gross sales recelpLs for Lax purposes and shall be sub[ecL Lo proper
documenLaLlon and Lo Lhe provlslons of Lhe naLlonal lnLernal 8evenue Code as
amended
4

Cn May 28 2004 Lhe uSWu approved and adopLed Lhe lmplemenLlng 8ules and
8egulaLlons of 8A no 9237 8ule vl ArLlcle 8 of whlch sLaLes
ArLlcle 8 1ox ueJoctloo of stobllsbmeots 1he esLabllshmenL may clalm Lhe
dlscounLs granLed under kole v 5ectloo 4 ulscounLs for LsLabllshmenLs
3
SecLlon
9 Medlcal and uenLal Servlces ln rlvaLe laclllLles
6
and SecLlons 10
7
and 11
8
Alr
Sea and Land 1ransporLaLlon as Lax deducLlon based on Lhe neL cosL of Lhe goods
sold or servlces rendered ltovlJeJ 1haL Lhe cosL of Lhe dlscounL shall be allowed
as deducLlon from gross lncome for Lhe same Laxable year LhaL Lhe dlscounL ls
granLed ltovlJeJ fottbet 1haL Lhe LoLal amounL of Lhe clalmed Lax deducLlon neL
of value added Lax lf appllcable shall be lncluded ln Lhelr gross sales recelpLs for Lax
purposes and shall be sub[ecL Lo proper documenLaLlon and Lo Lhe provlslons of Lhe
naLlonal lnLernal 8evenue Code as amended rovlded flnally LhaL Lhe
lmplemenLaLlon of Lhe Lax deducLlon shall be sub[ecL Lo Lhe 8evenue 8egulaLlons Lo
be lssued by Lhe 8ureau of lnLernal 8evenue (8l8) and approved by Lhe ueparLmenL
of llnance (uCl)
9

Cn !uly 10 2004 ln reference Lo Lhe query of Lhe urug SLores AssoclaLlon of Lhe
hlllpplnes (uSA) concernlng Lhe meanlng of a tox JeJoctloo under Lhe Lxpanded
Senlor ClLlzens AcL Lhe uCl Lhrough ulrecLor lv Ma Lourdes 8 8ecenLe clarlfled
as follows
1) 1he dlfference beLween Lhe 1ax CredlL (under Lhe Cld Senlor ClLlzens AcL) and
1ax ueducLlon (under Lhe Lxpanded Senlor ClLlzens AcL)
11 1he provlslon of SecLlon 4 of 8A no 7432 (Lhe old Senlor ClLlzens AcL) granLs
LwenLy percenL (20) dlscounL from all esLabllshmenLs relaLlve Lo Lhe uLlllzaLlon of
LransporLaLlon servlces hoLels and slmllar lodglng esLabllshmenL resLauranLs and
recreaLlon cenLers and purchase of medlclnes anywhere ln Lhe counLry Lhe cosLs of
whlch may be clalmed by Lhe prlvaLe esLabllshmenLs concerned as Lax credlL
LffecLlvely a Lax credlL ls a pesoforpeso deducLlon from a Laxpayer's Lax llablllLy
due Lo Lhe governmenL of Lhe amounL of dlscounLs such esLabllshmenL has granLed
Lo a senlor clLlzen 1he esLabllshmenL recovers Lhe full amounL of dlscounL glven Lo
a senlor clLlzen and hence Lhe governmenL shoulders 100 of Lhe dlscounLs
granLed
lL musL be noLed however LhaL concepLually a Lax credlL scheme under Lhe
hlllpplne Lax sysLem necesslLaLes LhaL prlor paymenLs of Laxes have been made
and Lhe Laxpayer ls aLLempLlng Lo recover Lhls Lax paymenL from hls/her lncome Lax
due 1he Lax credlL scheme under 8A no 7432 ls Lherefore lnappllcable slnce no
Lax paymenLs have prevlously occurred
12 1he provlslon under 8A no 9237 on Lhe oLher hand provldes LhaL Lhe
esLabllshmenL concerned may clalm Lhe dlscounLs under SecLlon 4(a) (f) (g) and (h)
as Lax deducLlon from gross lncome based on Lhe neL cosL of goods sold or servlces
rendered
under Lhls scheme Lhe esLabllshmenL concerned ls allowed Lo deducL from gross
lncome ln compuLlng for lLs Lax llablllLy Lhe amounL of dlscounLs granLed Lo senlor
clLlzens LffecLlvely Lhe governmenL loses ln Lerms of foregone revenues an amounL
equlvalenL Lo Lhe marglnal Lax raLe Lhe sald esLabllshmenL ls llable Lo pay Lhe
governmenL 1hls wlll be an amounL equlvalenL Lo 32 of Lhe LwenLy percenL (20)
dlscounLs so granLed 1he esLabllshmenL shoulders Lhe remalnlng porLlon of Lhe
granLed dlscounLs
lL may be necessary Lo noLe LhaL whlle Lhe burden on Lhe governmenL ls sllghLly
dlmlnlshed ln Lerms of lLs percenLage share on Lhe dlscounLs granLed Lo senlor
clLlzens Lhe number of poLenLlal esLabllshmenLs LhaL may clalm Lax deducLlons
have however been broadened Aslde from Lhe esLabllshmenLs LhaL may clalm Lax
credlLs under Lhe old law more esLabllshmenLs were added under Lhe new law such
as esLabllshmenLs provldlng medlcal and denLal servlces dlagnosLlc and laboraLory
servlces lncludlng professlonal fees of aLLendlng docLors ln all prlvaLe hosplLals and
medlcal faclllLles operaLors of domesLlc alr and sea LransporL servlces publlc
rallways and skyways and bus LransporL servlces
A slmple lllusLraLlon mlghL help ampllfy Lhe polnLs dlscussed above as follows
1ax ueducLlon 1ax CredlL
Cross Sales x x x x x x x x x x x x
Less CosL of goods sold x x x x x x x x x x
neL Sales x x x x x x x x x x x x
Less CperaLlng Lxpenses
1ax ueducLlon on ulscounLs x x x x
CLher deducLlons x x x x x x x x
neL 1axable lncome x x x x x x x x x x
1ax uue x x x x x x
Less 1ax CredlL ______x x
neL 1ax uue x x
149

As shown above under a Lax deducLlon scheme Lhe Lax deducLlon on dlscounLs was
subLracLed from neL Sales LogeLher wlLh oLher deducLlons whlch are consldered as
operaLlng expenses before Lhe 1ax uue was compuLed based on Lhe neL 1axable
lncome Cn Lhe oLher hand under a Lax credlL scheme Lhe amounL of dlscounLs
whlch ls Lhe Lax credlL lLem was deducLed dlrecLly from Lhe Lax due amounL
10

Meanwhlle on CcLober 1 2004 AdmlnlsLraLlve Crder (AC) no 171 or Lhe lollcles
ooJ ColJelloes to lmplemeot tbe kelevoot ltovlsloos of kepobllc Act 9257
otbetwlse koowo os tbe xpooJeJ 5eolot cltlzeos Act of 200J
11
was lssued by Lhe
uCP provldlng Lhe granL of LwenLy percenL (20) dlscounL ln Lhe purchase of
unbranded generlc medlclnes from all esLabllshmenLs dlspenslng medlclnes for Lhe
excluslve use of Lhe senlor clLlzens
Cn november 12 2004 Lhe uCP lssued AdmlnlsLraLlve Crder no 177
12
amendlng
AC no 171 under AC no 177 Lhe LwenLy percenL dlscounL shall noL be llmlLed
Lo Lhe purchase of unbranded generlc medlclnes only buL shall exLend Lo boLh
prescrlpLlon and nonprescrlpLlon medlclnes wheLher branded or generlc 1hus lL
sLaLed LhaL Lhe granL of LwenLy percenL (20) dlscounL shall be provlded ln Lhe
purchase of medlclnes from all esLabllshmenLs dlspenslng medlclnes for Lhe
excluslve use of Lhe senlor clLlzens
eLlLloners assall Lhe consLlLuLlonallLy of SecLlon 4(a) of Lhe Lxpanded Senlor
ClLlzens AcL based on Lhe followlng grounds
13

1) 1he law ls conflscaLory because lL lnfrlnges ArL lll Sec 9 of Lhe ConsLlLuLlon
whlch provldes LhaL prlvaLe properLy shall noL be Laken for publlc use wlLhouL [usL
compensaLlon
2) lL vlolaLes Lhe equal proLecLlon clause (ArL lll Sec 1) enshrlned ln our
ConsLlLuLlon whlch sLaLes LhaL no person shall be deprlved of llfe llberLy or
properLy wlLhouL due process of law nor shall any person be denled of Lhe equal
proLecLlon of Lhe laws and
3) 1he 20 dlscounL on medlclnes vlolaLes Lhe consLlLuLlonal guaranLee ln ArLlcle
xlll SecLlon 11 LhaL makes essenLlal goods healLh and oLher soclal servlces
avallable Lo all people aL affordable cosL
14

eLlLloners asserL LhaL SecLlon 4(a) of Lhe law ls unconsLlLuLlonal because lL
consLlLuLes deprlvaLlon of prlvaLe properLy Compelllng drugsLore owners and
esLabllshmenLs Lo granL Lhe dlscounL wlll resulL ln a loss of proflL
and caplLal because 1) drugsLores lmpose a markup of only 3 Lo 10 on branded
medlclnes and 2) Lhe law falled Lo provlde a scheme whereby drugsLores wlll be
[usLly compensaLed for Lhe dlscounL
Lxamlnlng peLlLloners' argumenLs lL ls apparenL LhaL whaL peLlLloners are
ulLlmaLely quesLlonlng ls Lhe valldlLy of Lhe Lax deducLlon scheme as a
relmbursemenL mechanlsm for Lhe LwenLy percenL (20) dlscounL LhaL Lhey exLend
Lo senlor clLlzens
8ased on Lhe aforesLaLed uCl Cplnlon Lhe Lax deducLlon scheme does noL fully
relmburse peLlLloners for Lhe dlscounL prlvllege accorded Lo senlor clLlzens 1hls ls
because Lhe dlscounL ls LreaLed as a deducLlon a LaxdeducLlble expense LhaL ls
subLracLed from Lhe gross lncome and resulLs ln a lower Laxable lncome SLaLed
oLherwlse lL ls an amounL LhaL ls allowed by law
13
Lo reduce Lhe lncome prlor Lo Lhe
appllcaLlon of Lhe Lax raLe Lo compuLe Lhe amounL of Lax whlch ls due
16
8elng a Lax
deducLlon Lhe dlscounL does noL reduce Laxes owed on a peso for peso basls buL
merely offers a fracLlonal reducLlon ln Laxes owed
1heoreLlcally Lhe LreaLmenL of Lhe dlscounL as a deducLlon reduces Lhe neL lncome
of Lhe prlvaLe esLabllshmenLs concerned 1he dlscounLs glven would have enLered
Lhe coffers and formed parL of Lhe gross sales of Lhe prlvaLe esLabllshmenLs were lL
noL for 8A no 9237
1he permanenL reducLlon ln Lhelr LoLal revenues ls a forced subsldy correspondlng
Lo Lhe Laklng of prlvaLe properLy for publlc use or beneflL
17
1hls consLlLuLes
compensable Laklng for whlch peLlLloners would ordlnarlly become enLlLled Lo a [usL
compensaLlon
!usL compensaLlon ls deflned as Lhe full and falr equlvalenL of Lhe properLy Laken
from lLs owner by Lhe exproprlaLor 1he measure ls noL Lhe Laker's galn buL Lhe
owner's loss 1he word [usL ls used Lo lnLenslfy Lhe meanlng of Lhe word
compensaLlon and Lo convey Lhe ldea LhaL Lhe equlvalenL Lo be rendered for Lhe
properLy Lo be Laken shall be real subsLanLlal full and ample
18

A Lax deducLlon does noL offer full relmbursemenL of Lhe senlor clLlzen dlscounL As
such lL would noL meeL Lhe deflnlLlon of [usL compensaLlon
19

Pavlng sald LhaL Lhls ralses Lhe quesLlon of wheLher Lhe SLaLe ln promoLlng Lhe
healLh and welfare of a speclal group of clLlzens can lmpose upon prlvaLe
esLabllshmenLs Lhe burden of parLly subsldlzlng a governmenL program
1he CourL belleves so
1he Senlor ClLlzens AcL was enacLed prlmarlly Lo maxlmlze Lhe conLrlbuLlon of
senlor clLlzens Lo naLlonbulldlng and Lo granL beneflLs and prlvlleges Lo Lhem for
Lhelr lmprovemenL and wellbelng as Lhe SLaLe conslders Lhem an lnLegral parL of
our socleLy
20

1he prlorlLy glven Lo senlor clLlzens flnds lLs basls ln Lhe ConsLlLuLlon as seL forLh ln
Lhe law lLself 1hus Lhe AcL provldes
SLC 2 8epubllc AcL no 7432 ls hereby amended Lo read as follows
SLC1lCn 1 ueclototloo of lollcles ooJ Objectlves ursuanL Lo ArLlcle xv SecLlon
4 of Lhe ConsLlLuLlon lL ls Lhe duLy of Lhe famlly Lo Lake care of lLs elderly members
whlle Lhe SLaLe may deslgn programs of soclal securlLy for Lhem ln addlLlon Lo Lhls
SecLlon 10 ln Lhe ueclaraLlon of rlnclples and SLaLe ollcles provldes 1he SLaLe
shall provlde soclal [usLlce ln all phases of naLlonal developmenL lurLher ArLlcle
xlll SecLlon 11 provldes 1he SLaLe shall adopL an lnLegraLed and comprehenslve
approach Lo healLh developmenL whlch shall endeavor Lo make essenLlal goods
healLh and oLher soclal servlces avallable Lo all Lhe people aL affordable cosL 1here
shall be prlorlLy for Lhe needs of Lhe underprlvlleged slck elderly dlsabled women
130

and chlldren ConsonanL wlLh Lhese consLlLuLlonal prlnclples Lhe followlng are Lhe
declared pollcles of Lhls AcL

(f) 1o recognlze Lhe lmporLanL role of Lhe prlvaLe secLor ln Lhe lmprovemenL of Lhe
welfare of senlor clLlzens and Lo acLlvely seek Lhelr parLnershlp
21

1o lmplemenL Lhe above pollcy Lhe law granLs a LwenLy percenL dlscounL Lo senlor
clLlzens for medlcal and denLal servlces and dlagnosLlc and laboraLory fees
admlsslon fees charged by LheaLers concerL halls clrcuses carnlvals and oLher
slmllar places of culLure lelsure and amusemenL fares for domesLlc land alr and
sea Lravel uLlllzaLlon of servlces ln hoLels and slmllar lodglng esLabllshmenLs
resLauranLs and recreaLlon cenLers and purchases of medlclnes for Lhe excluslve
use or en[oymenL of senlor clLlzens As a form of relmbursemenL Lhe law provldes
LhaL buslness esLabllshmenLs exLendlng Lhe LwenLy percenL dlscounL Lo senlor
clLlzens may clalm Lhe dlscounL as a Lax deducLlon
1he law ls a leglLlmaLe exerclse of pollce power whlch slmllar Lo Lhe power of
emlnenL domaln has general welfare for lLs ob[ecL ollce power ls noL capable of
an exacL deflnlLlon buL has been purposely velled ln general Lerms Lo underscore lLs
comprehenslveness Lo meeL all exlgencles and provlde enough room for an efflclenL
and flexlble response Lo condlLlons and clrcumsLances Lhus assurlng Lhe greaLesL
beneflLs
22
Accordlngly lL has been descrlbed as Lhe mosL essenLlal lnslsLenL and
Lhe leasL llmlLable of powers exLendlng as lL does Lo all Lhe greaL publlc needs
23
lL
ls Lhe power vesLed ln Lhe leglslaLure by Lhe consLlLuLlon Lo make ordaln and
esLabllsh all manner of wholesome and reasonable laws sLaLuLes and ordlnances
elLher wlLh penalLles or wlLhouL noL repugnanL Lo Lhe consLlLuLlon as Lhey shall
[udge Lo be for Lhe good and welfare of Lhe commonwealLh and of Lhe sub[ecLs of
Lhe same
24

lor Lhls reason when Lhe condlLlons so demand as deLermlned by Lhe leglslaLure
properLy rlghLs musL bow Lo Lhe prlmacy of pollce power because properLy rlghLs
Lhough shelLered by due process musL yleld Lo general welfare
23

ollce power as an aLLrlbuLe Lo promoLe Lhe common good would be dlluLed
conslderably lf on Lhe mere plea of peLlLloners LhaL Lhey wlll suffer loss of earnlngs
and caplLal Lhe quesLloned provlslon ls lnvalldaLed Moreover ln Lhe absence of
evldence demonsLraLlng Lhe alleged conflscaLory effecL of Lhe provlslon ln quesLlon
Lhere ls no basls for lLs nulllflcaLlon ln vlew of Lhe presumpLlon of valldlLy whlch
every law has ln lLs favor
26

Clven Lhese lL ls lncorrecL for peLlLloners Lo lnslsL LhaL Lhe granL of Lhe senlor clLlzen
dlscounL ls unduly oppresslve Lo Lhelr buslness because peLlLloners have noL Laken
Llme Lo calculaLe correcLly and come up wlLh a flnanclal reporL so LhaL Lhey have
noL been able Lo show properly wheLher or noL Lhe Lax deducLlon scheme really
works greaLly Lo Lhelr dlsadvanLage
27

ln LreaLlng Lhe dlscounL as a Lax deducLlon peLlLloners lnslsL LhaL Lhey wlll lncur
losses because referrlng Lo Lhe uCl Cplnlon for every 100 senlor clLlzen dlscounL
LhaL peLlLloners would glve 068 wlll be shouldered by Lhem as only 032 wlll be
refunded by Lhe governmenL by way of a Lax deducLlon
1o lllusLraLe Lhls polnL peLlLloner Carlos Super urug clLed Lhe anLlhyperLenslve
malnLenance drug Notvosc as an example Accordlng Lo Lhe laLLer lL acqulres
Notvosc from Lhe dlsLrlbuLors aL 3737 per LableL and reLalls lL aL 3960 (or aL a
margln of 3) lf lL granLs a 20 dlscounL Lo senlor clLlzens or an amounL equlvalenL
Lo 792 Lhen lL would have Lo sell Notvosc aL 3168 whlch LranslaLes Lo a loss
from caplLal of 389 per LableL Lven lf Lhe governmenL wlll allow a Lax deducLlon
only 233 per LableL wlll be refunded and noL Lhe full amounL of Lhe dlscounL
whlch ls 792 ln shorL only 32 of Lhe 20 dlscounL wlll be relmbursed Lo Lhe
drugsLores
28

eLlLloners' compuLaLlon ls flawed lor purposes of relmbursemenL Lhe law sLaLes
LhaL Lhe cosL of Lhe dlscounL shall be deducLed from gross lncome
29
Lhe amounL of
lncome derlved from all sources before deducLlng allowable expenses whlch wlll
resulL ln neL lncome Pere peLlLloners Lrled Lo show a loss on a per LransacLlon
basls whlch should noL be Lhe case An lncome sLaLemenL showlng an accounLlng
of peLlLloners' sales expenses and neL proflL (or loss) for a glven perlod could have
accuraLely reflecLed Lhe effecL of Lhe dlscounL on Lhelr lncome AbsenL any flnanclal
sLaLemenL peLlLloners cannoL subsLanLlaLe Lhelr clalm LhaL Lhey wlll be operaLlng aL
a loss should Lhey glve Lhe dlscounL ln addlLlon Lhe compuLaLlon was erroneously
based on Lhe assumpLlon LhaL Lhelr cusLomers conslsLed wholly of senlor clLlzens
LasLly Lhe 32 Lax raLe ls Lo be lmposed on lncome noL on Lhe amounL of Lhe
dlscounL
lurLhermore lL ls unfalr for peLlLloners Lo crlLlclze Lhe law because Lhey cannoL
ralse Lhe prlces of Lhelr medlclnes glven Lhe cuLLhroaL naLure of Lhe players ln Lhe
lndusLry lL ls a buslness declslon on Lhe parL of peLlLloners Lo peg Lhe markup aL
3 Selllng Lhe medlclnes below acqulslLlon cosL as alleged by peLlLloners ls merely
a resulL of Lhls declslon lnasmuch as prlclng ls a properLy rlghL peLlLloners cannoL
reproach Lhe law for belng oppresslve slmply because Lhey cannoL afford Lo ralse
Lhelr prlces for fear of loslng Lhelr cusLomers Lo compeLlLlon
1he CourL ls noL obllvlous of Lhe reLall slde of Lhe pharmaceuLlcal lndusLry and Lhe
compeLlLlve prlclng componenL of Lhe buslness Whlle Lhe ConsLlLuLlon proLecLs
properLy rlghLs peLlLloners musL accepL Lhe reallLles of buslness and Lhe SLaLe ln
Lhe exerclse of pollce power can lnLervene ln Lhe operaLlons of a buslness whlch
may resulL ln an lmpalrmenL of properLy rlghLs ln Lhe process
Moreover Lhe rlghL Lo properLy has a soclal dlmenslon Whlle ArLlcle xlll of Lhe
ConsLlLuLlon provldes Lhe precepL for Lhe proLecLlon of properLy varlous laws and
[urlsprudence parLlcularly on agrarlan reform and Lhe regulaLlon of conLracLs and
publlc uLlllLles conLlnuously serve as a remlnder LhaL Lhe rlghL Lo properLy can be
rellnqulshed upon Lhe command of Lhe SLaLe for Lhe promoLlon of publlc good
30

undenlably Lhe success of Lhe senlor clLlzens program resLs largely on Lhe supporL
lmparLed by peLlLloners and Lhe oLher prlvaLe esLabllshmenLs concerned 1hls belng
131

Lhe case Lhe means employed ln lnvoklng Lhe acLlve parLlclpaLlon of Lhe prlvaLe
secLor ln order Lo achleve Lhe purpose or ob[ecLlve of Lhe law ls reasonably and
dlrecLly relaLed WlLhouL sufflclenL proof LhaL SecLlon 4(a) of 8A no 9237 ls
arblLrary and LhaL Lhe conLlnued lmplemenLaLlon of Lhe same would be
unconsclonably deLrlmenLal Lo peLlLloners Lhe CourL wlll refraln from quashlng a
leglslaLlve acL
31

WPL8LlC8L Lhe peLlLlon ls ulSMlSSLu for lack of merlL
no cosLs
SC C8uL8Lu

Gk No 129098 December 6 2006
CA8kLkA VS LA9ID

u L C l S l C n

1lnCA I
1he lnsLanL peLlLlon for revlew on cerLlorarl seeks Lhe reversal of Lhe 8esoluLlon
1

daLed 13 May 1996 and Lhe Crder
2
daLed 21 March 1997 boLh lssued by Lhe Cfflce
of Lhe Cmbudsman 1he 8esoluLlon dlsmlssed Lhe complalnLaffldavlL flled by
peLlLloner agalnsL respondenLs and Lhe Crder denled her moLlon for
reconslderaLlon
1he lnsLanL peLlLlon orlglnaLed from a ComplalnLAffldavlL
3
flled ln november 1993
by peLlLloner Amella M Cabrera wlLh Lhe Cfflce of Lhe Cmbudsman
(Cmbudsman) named respondenLs were Manuel Lapld lernando 8alLazar
8eynaldo l Cabrera and SuperlnLendenL ulony venLura respecLlvely ln Lhelr
capaclLles as Covernor of ampanga Mayor of Sasmuan ampanga vlceMayor of
Sasmuan ampanga and SuperlnLendenL of Lhe hlllpplne naLlonal ollce (n)
8eglon 3 ampanga ln her Lhree(3)page affldavlL peLlLloner accused respondenLs
of vlolaLlng SecLlon 3(e) of Lhe AnLlCrafL and CorrupL racLlces AcL and ArLlcle 324
of Lhe 8evlsed enal Code
ln her ComplalnLAffldavlL peLlLloner sLaLed LhaL she enLered lnLo a lease
agreemenL wlLh Lhe MunlclpallLy of Sasmuan over a LracL of land for Lhe purpose of
devoLlng lL Lo flshpond operaLlons Accordlng Lo peLlLloner she had spenL
approxlmaLely 300000000 for lLs consLrucLlon before Lhe flshpond operaLlons
commenced ln AugusL 1993 A monLh laLer peLlLloner learned from newspaper
reporLs of Lhe lmpendlng demollLlon of her flshpond as lL was purporLedly lllegal
and blocked Lhe flow of Lhe asak 8lver 1hus peLlLloner senL Lhe flshpond
admlnlsLraLor Lo dlssuade respondenLs from desLroylng her properLy
4

uesplLe pleas from peLlLloner respondenLs ordered Lhe desLrucLlon of peLlLloners
flshpond 1he properLy was demollshed on 10 CcLober 1993 by dynamlLe blasLlng
eLlLloner alleged LhaL Lhe demollLlon was purposely carrled ouL ln Lhe presence of
medla represenLaLlves and oLher governmenL offlclals Lo galn medla mlleage
eLlLloner lmpuLed evldenL bad falLh on respondenLs Mayor 8alLazar and vlce
Mayor Cabrera ln allowlng Lhe desLrucLlon of Lhe flshpond desplLe Lhelr prlor
knowledge of Lhe exlsLence of Lhe lease agreemenL She also charged respondenLs
Covernor Lapld and Senlor SuperlnLendenL venLura wlLh gross lnexcusable
negllgence for orderlng Lhe desLrucLlon of Lhe flshpond wlLhouL flrsL verlfylng lLs
legallLy
3

AL Lhe prellmlnary lnvesLlgaLlon respondenLs excepL Senlor SuperlnLendenL
venLura submlLLed counLeraffldavlLs denylng Lhe accusaLlons agalnsL Lhem ln Lhe
counLeraffldavlL [olnLly flled by Mayor 8alLazar and vlceMayor Cabrera Lhey
lnslsLed LhaL conLrary Lo peLlLloners clalm Lhe flshpond was an lllegal sLrucLure
because lL was erecLed on Lhe seashore aL Lhe mouLh of Lhe asak 8lver and saL on
an lnallenable land 1hey clalmed LhaL Lhe demollLlon was done by Lhe 1ask lorce
8llls uoloy upon Lhe dlrecLlve of Lhen resldenL lldel v 8amos
6

ln hls CounLerAffldavlL
7
Covernor Lapld averred LhaL Lhe conLracL of lease beLween
peLlLloner and Lhe MunlclpallLy of Sasmuan represenLed by Lhen Mayor Abelardo
anlaqul was execuLed Lwo weeks before respondenL Mayor 8alLazar Look hls oaLh
of offlce ln 1993 Covernor Lapld also argued LhaL under Lhe law Lhe ueparLmenL of
AgrlculLure (uA) ls Lhe governmenL agency auLhorlzed Lo enLer lnLo llcenslng
agreemenLs for flshpond operaLlons and as per cerLlflcaLlon by Lhe uA 8eglonal
ulrecLor peLlLloners flshpond operaLlon was noL covered by a flshpond lease
agreemenL or appllcaLlon Covernor Lapld also referred Lo Lhe cerLlflcaLlon by Lhe
Munlclpal PealLh Cfflcer of Sasmuan lssued before Lhe acLual demollLlon of Lhe
flshpond descrlblng lL as a nulsance pet se and recommendlng lLs abaLemenL
8

Cn 13 May 1996 Lhe Cmbudsman lssued Lhe assalled 8esoluLlon dlsmlsslng
peLlLloners complalnL 1he dlsmlssal was based on Lhe declaraLlon LhaL Lhe
flshpond was a nulsance pet se and Lhus may be abaLed by respondenLs ln Lhe
exerclse of Lhe pollce power of Lhe SLaLe
9

eLlLloner soughL reconslderaLlon of Lhe 8esoluLlon argulng LhaL under Sec 149 of
8epubllc AcL (8A) no 7160 oLherwlse known as Lhe Local CovernmenL Code of
1991 Lhe excluslve auLhorlLy Lo granL flshery prlvlleges ls vesLed ln Lhe
munlclpallLles eLlLloner also quesLloned Lhe cerLlflcaLlon by Lhe Munlclpal PealLh
Cfflcer alleglng LhaL Lhe same was lssued before Lhe ocular lnspecLlon of Lhe
properLy whlch Look place only on Lhe day of Lhe demollLlon eLlLloner also
conLended LhaL a [udlclal proceedlng was necessary Lo deLermlne wheLher Lhe
properLy lndeed had caused Lhe floodlng
10
8espondenLs flled separaLe opposlLlons
Lo peLlLloners moLlon for reconslderaLlon
11
eLlLloner flled a reply Lo Lhe
opposlLlon
12
and respondenL Covernor Lapld flled a re[olnder Lo Lhe reply
13

ln Lhe Crder daLed 21 March 1997 Lhe Cmbudsman afflrmed lLs 13 May 1996
8esoluLlon lL ruled LhaL Lhe repeallng clause of 8A no 7160 expressly repealed
only Sec 2 6 and 29 of resldenLlal uecree (u) no 704 so LhaL ln harmonlzlng
Lhe remalnlng provlslons of u no 704 and Lhe provlslons of 8A no 7160
appllcable Lo Lhe granL of flshery prlvlleges Lhe 8ureau of llsherles and AquaLlc
132

8esources (8lA8) ls Lhe governmenL agency auLhorlzed Lo granL flshpond llcense or
permlL ln areas noL ldenLlfled as munlclpal waLers or noL declared as allenable or
dlsposable by Lhe ueparLmenL of LnvlronmenL and naLural 8esources (uLn8) Slnce
lL appears from uLn8 records LhaL Lhe sub[ecL properLy has noL been declared
dlsposable or lncluded ln areas devoLed for flshpond developmenL Lhe
Cmbudsman concluded LhaL Lhe lease agreemenL enLered lnLo by peLlLloner was
vold ob loltlo ln vlew of Lhe lllegallLy of Lhe lease agreemenL Lhe Cmbudsman ruled
LhaL lLs demollLlon was [usLlfled 1he Cmbudsman descrlbed Lhe demollLlon as a
valld exerclse of pollce power and ln accordance wlLh Lhe provlslon of Sec 28 of
u no 704 dlrecLlng Lhe removal of any flshpen or flshpond LhaL obsLrucLed Lhe
free navlgaLlon of a sLream or lake lL also upheld Lhe auLhorlLy of Lhe dlsLrlcL healLh
offlcer Lo deLermlne Lhe abaLemenL of a nulsance wlLhouL need of [udlclal
proceedlngs
14

eLlLloner elevaLed Lhe maLLer Lo Lhls CourL vla a peLlLlon for revlew on cerLlorarl
under 8ule 43 of Lhe 8ules of CourL Lo assall Lhe 13 May 1996 8esoluLlon and 21
March 1997 Crder of Lhe Cmbudsman eLlLloner subsequenLly flled an amended
peLlLlon for revlew on cerLlorarl Lo lmplead Lhe Cmbudsman as respondenL
alLhough ln a peLlLlon for revlew on cerLlorarl Lhe Lrlbunal whose lssuance ls
assalled need noL be lmpleaded as respondenL
1he peLlLlon lmpuLes Lhe followlng errors on Lhe Cmbudsman
l
1PL ClllCL Cl 1PL CM8uuSMAn L88Lu Anu LxCLLuLu l1S Au1PC8l1? ln
8uLlnC 1PA1 1PL LLASL CCn18AC1 8L1WLLn 1PL MunlClALl1? Cl SASMuAn
Anu L1l1lCnL8 lS nuLL Anu vClu
ll
1PL ClllCL Cl 1PL CM8uuSMAn L88Lu ln 8uLlnC 1PA1 1PL uLMCLl1lCn Cl
1PL llSPCnu WAS vALluL? MAuL 8? vl81uL Cl 1PL uLCLA8A1lCn 8? 1PL
PLAL1P ClllCL8 1PA1 l1 WAS A nulSAnCL L8 SL
lll
1PL ClllCL Cl 1PL CM8uuSMAn L88Lu ln 8uLlnC 1PA1 1PL uLMCLl1lCn lS
A81 Cl 1PL 8CL8 LxL8ClSL Cl 1PL CLlCL CWL8 Cl 1PL S1A1L
lv
1PL ClllCL Cl 1PL CM8uuSMAn L88Lu ln 8uLlnC 1PA1 L1l1lCnL8 WAS ClvLn
uuL nC1lCL Anu PLA8lnC 8LlC8L 1PL llSPCnu WAS 8LAS1Lu
v
1PL ClllCL Cl 1PL CM8uuSMAn L88Lu ln 8uLlnC 1PA1 8C8A8LL CAuSL uCLS
nC1 LxlS1 1C lnulC1 8LSCnuLn1S lC8 vlCLA1lCn Cl 1PL Su8!LC1 CllLnSLS
13

Clearly Lhls ls an appeal from Lhe quesLloned lssuances of Lhe Cmbudsman
Powever such dlrecL resorL Lo Lhls CourL from a resoluLlon or order of Lhe
Cmbudsman ls noL sancLloned by any rule of procedure
nelLher can peLlLloner avall of Sec 27
16
of 8A no 6770 oLherwlse known as 1he
Cmbudsman AcL of 1989 1he provlslon allowed dlrecL appeals ln admlnlsLraLlve
dlsclpllnary cases from Lhe Cfflce of Lhe Cmbudsman Lo Lhe Supreme CourL 1he
rlghL Lo appeal ls granLed only ln respecL Lo orders or declslons of Lhe Cmbudsman
ln admlnlsLraLlve cases
17
1he provlslon does noL cover resoluLlons of Lhe
Cmbudsman ln crlmlnal cases More lmporLanLly Sec 27 of 8A no 6770 lnsofar as
lL allowed a dlrecL appeal Lo Lhls CourL was declared unconsLlLuLlonal ln lobloo v
noo uesletto
18

Powever an aggrleved parLy ln crlmlnal acLlons ls noL wlLhouL any recourse Where
grave abuse of dlscreLlon amounLlng Lo lack or excess of [urlsdlcLlon LalnLs Lhe
flndlngs of Lhe Cmbudsman on Lhe exlsLence of probable cause Lhe aggrleved parLy
may flle a peLlLlon for cerLlorarl under 8ule 63
19
1he remedy from resoluLlons of
Lhe Cmbudsman ln prellmlnary lnvesLlgaLlons of crlmlnal cases ls a peLlLlon for
cerLlorarl under 8ule 63 noL a peLlLlon for revlew on cerLlorarl under 8ule 43
20

8uL ln Lhls case peLlLloner has Laken Lhe poslLlon LhaL Lhe Cmbudsman has declded
quesLlons of subsLance conLrary Lo law and Lhe appllcable declslons of Lhe Supreme
CourL 1haL ls a ground under a 8ule 43 peLlLlon lndeed from a readlng of Lhe
asslgnmenL of errors lL ls clear LhaL peLlLloner does noL lmpuLe grave abuse of
dlscreLlon Lo Lhe Cmbudsman ln lssulng Lhe assalled 8esoluLlon and Crder 8aLher
she merely quesLlons hls flndlngs and concluslons As sLaLed earller dlrecL appeal Lo
Lhe Supreme CourL vla a peLlLlon for revlew on cerLlorarl ls noL sancLloned by any
rule of procedure 8y avalllng of a wrong remedy Lhe peLlLlon should be dlsmlssed
ouLrlghL
Lven lf Lhe CourL LreaLs Lhe lnsLanL appeal as a peLlLlon for cerLlorarl under 8ule 63
lLs dlsmlssal ls neverLheless warranLed because peLlLloner falled Lo presenL much
more subsLanLlaLe any grave abuse of dlscreLlon on Lhe parL of Lhe Cmbudsman
A careful readlng of Lhe quesLloned 8esoluLlon reveals LhaL Lhe Cmbudsman
dlsmlssed peLlLloners crlmlnal complalnL because respondenLs had valldly resorLed
Lo Lhe pollce power of Lhe SLaLe when Lhey effecLed Lhe demollLlon of Lhe lllegal
flshpond ln quesLlon followlng Lhe declaraLlon Lhereof as a nulsance pet se 1hus
Lhe Cmbudsman was of Lhe oplnlon LhaL no vlolaLlon of SecLlon 3(e)
21
of Lhe AnLl
CrafL and CorrupL racLlces AcL or of ArLlcle 324
22
of Lhe 8evlsed enal Code was
commlLLed by respondenLs ln Lhe words of Lhe Cmbudsman Lhose who
parLlclpaLed ln Lhe blasLlng of Lhe sub[ecL flshpond were only lmpelled by Lhelr
deslre Lo serve Lhe besL lnLeresL of Lhe general publlc for Lhe good and Lhe hlghesL
good
23

8y grave abuse of dlscreLlon ls meanL caprlclous and whlmslcal exerclse of
[udgmenL as ls equlvalenL Lo lack of [urlsdlcLlon Mere abuse of dlscreLlon ls noL
enough lL musL be grave abuse of dlscreLlon as when Lhe power ls exerclsed ln an
arblLrary or despoLlc manner by reason of passlon or personal hosLlllLy and musL be
so paLenL and so gross as Lo amounL Lo an evaslon of a poslLlve duLy or Lo a vlrLual
refusal Lo perform Lhe duLy en[olned or Lo acL aL all ln conLemplaLlon of law
24

Crave abuse of dlscreLlon should be dlfferenLlaLed from an error ln [udgmenL An
error of [udgmenL ls one whlch Lhe courL may commlL ln Lhe exerclse of lLs
133

[urlsdlcLlon and whlch error ls reverslble only by an appeal As long as Lhe courL
acLs wlLhln lLs [urlsdlcLlon any alleged errors commlLLed ln Lhe exerclse of lLs
dlscreLlon wlll amounL Lo noLhlng more Lhan mere errors of [udgmenL correcLlble
by an appeal or a peLlLlon for revlew under 8ule 43 of Lhe 8ules of CourL An error
of [urlsdlcLlon ls one where Lhe acL complalned of was lssued by Lhe courL wlLhouL
or ln excess of [urlsdlcLlon and whlch error ls correcLlble only by Lhe exLraordlnary
wrlL of cerLlorarl
23

1he oLher errors ralsed by peLlLloner perLaln Lo Lhe Cmbudsmans oplnlon on Lhe
lack of probable cause Lo lndlcL respondenLs 1hese are purporLed errors ln
[udgmenL whlch can be correcLed by an appeal alLhough noL vla a dlrecL appeal Lo
Lhls CourL ulrecL resorL Lo Lhls CourL may be had only Lhrough Lhe exLraordlnary
wrlL of cerLlorarl and upon showlng LhaL Lhe Cmbudsman commlLLed grave abuse of
dlscreLlon whlch peLlLloner falled Lo demonsLraLe
AbsenL any grave abuse of dlscreLlon LalnLlng lL Lhe courLs wlll noL lnLerfere wlLh
Lhe Cmbudsmans supervlslon and conLrol over Lhe prellmlnary lnvesLlgaLlon
conducLed by hlm
26
lL ls beyond Lhe amblL of Lhls CourL Lo revlew Lhe exerclse of
dlscreLlon of Lhe Cmbudsman ln prosecuLlng or dlsmlsslng a complalnL flled before
lL
27
1he rule ls based noL only upon respecL for Lhe lnvesLlgaLory and prosecuLory
powers granLed by Lhe ConsLlLuLlon Lo Lhe Cfflce of Lhe Cmbudsman buL upon
pracLlcallLy as well CLherwlse Lhe funcLlons of Lhe courLs wlll be grlevously
hampered by lnnumerable peLlLlons assalllng Lhe dlsmlssal of lnvesLlgaLory
proceedlngs conducLed by Lhe Cfflce of Lhe Cmbudsman wlLh regard Lo complalnLs
flled before lL ln much Lhe same way LhaL Lhe courLs would be exLremely swamped
lf Lhey would be compelled Lo revlew Lhe exerclse of dlscreLlon on Lhe parL of Lhe
flscals or prosecuLlng aLLorneys each Llme Lhey declde Lo flle an lnformaLlon ln courL
or dlsmlss a complalnL by a prlvaLe complalnanL
28

WPL8LlC8L Lhe lnsLanL peLlLlon for revlew on cerLlorarl ls uLnlLu no cosLs
SC C8uL8Lu
SLone v Mlsslsslppl
101 uS 814
kkOk 1O 1n 5ulkM cOuk1
Ol 1n 51A1 Ol Ml55l55llll
5yllobos
1 ln 1867 Lhe LeglslaLure of Mlsslsslppl granLed a charLer Lo a loLLery company for
LwenLyflve years ln conslderaLlon of a sLlpulaLed sum ln cash an annual paymenL
of a furLher sum and a percenLage of recelpLs from Lhe sale of LlckeLs A provlslon
of Lhe consLlLuLlon adopLed ln 1868 declares LhaL
1he leglslaLure shall never auLhorlze any loLLery nor shall Lhe sale of loLLery LlckeLs
be allowed nor shall any loLLery hereLofore auLhorlzed be permlLLed Lo be drawn
or LlckeLs Lhereln Lo be sold
nelJ
1 1haL Lhls provlslon ls noL ln confllcL wlLh sec 10 arL 1 of Lhe ConsLlLuLlon of Lhe
unlLed SLaLes whlch prohlblLs a SLaLe from passlng a law lmpalrlng Lhe obllgaLlon
of conLracLs
2 1haL such a charLer ls ln legal effecL noLhlng more Lhan a llcense Lo en[oy Lhe
prlvllege conferred for Lhe Llme and on Lhe Lerms speclfled sub[ecL Lo fuLure
leglslaLlve or consLlLuLlonal conLrol or wlLhdrawal
2 1tostees of uottmootb colleqe v wooJwotJ 4 WheaL 318 commenLed upon
and explalned
3 1he leglslaLure cannoL by charLerlng a loLLery company defeaL Lhe wlll of Lhe
people of Lhe sLaLe auLhorlLaLlvely expressed ln relaLlon Lo Lhe conLlnuance of such
buslness ln Lhelr mldsL
1he LeglslaLure of Mlsslsslppl passed an AcL approved leb 16 1867 enLlLled An
AcL lncorporaLlng Lhe Mlsslsslppl AgrlculLural and ManufacLurlng Ald SocleLy lLs
provlslons so far as Lhey bear upon Lhe quesLlons lnvolved are as follows
1he corporaLlon shall have power Lo recelve subscrlpLlons and sell and dlspose of
cerLlflcaLes of subscrlpLlons whlch shall enLlLle Lhe holders Lhereof Lo any arLlcles
LhaL may be awarded Lo Lhem and Lhe dlsLrlbuLlon of Lhe awards shall be falrly
made ln publlc afLer adverLlslng by tbe costloq of lots ot by lot cbooce ot
otbetwlse ln such manner as shall be dlrecLed by Lhe bylaws of sald corporaLlon
and Lhe sald corporaLlon shall have power Lo offer premlums or prlzes ln money for
Lhe besL essays on agrlculLure manufacLures and educaLlon wrlLLen by a clLlzen of
Mlsslsslppl or Lo Lhe mosL deservlng works of arL execuLed by clLlzens of
Mlsslsslppl or Lhe mosL useful lnvenLlons ln mechanlcs sclence or arL mane by
clLlzens of Mlsslsslppl
Sec 7 provldes LhaL Lhe arLlcles Lo be dlsLrlbuLed or awarded may conslsL of lands
books palnLlngs sLaLues anLlques sclenLlflc
age 101 u S 813
lnsLrumenLs or apparaLus or any oLher properLy or Lhlng LhaL may be ornamenLal
valuable or useful
SecL 8 requlres Lhe corporaLlon Lo pay before Lhe commencemenL of buslness Lo
Lhe Lreasurer of Lhe sLaLe for Lhe use of Lhe unlverslLy Lhe sum of $3000 and Lo
glve bond and securlLy for Lhe annual paymenL of $1000 LogeLher wlLh onehalf
percenL on Lhe amounL of recelpLs derlved from Lhe sale of cerLlflcaLes
SecL 9 declares LhaL any neglecL or refusal Lo comply wlLh Lhe provlslons of Lhe acL
shall work a forfelLure of all Lhe prlvlleges granLed and sub[ecL any offlcer or agenL
falllng Lo carry ouL lLs provlslons or commlLLlng any fraud ln selllng LlckeLs aL
drawlng of loLLery Lo lndlcLmenL Lhe penalLy belng a flne noL less Lhan $1000 and
lmprlsonmenL noL less Lhan slx monLhs
SecL 11 enacLs LhaL as soon as Lhe sum of $100000 ls subscrlbed and Lhe sum of
$23000 pald lnLo Lhe caplLal sLock Lhe company shall go lnLo operaLlon under Lhelr
charLer and noL before and Lhe acL of lncorporaLlon shall conLlnue and be ln force
for Lhe space of LwenLyflve years from lLs passage and LhaL all laws and parLs of
134

laws ln confllcL wlLh lLs provlslons be repealed and LhaL Lhe acL shall Lake effecL
from and afLer lLs passage
1he consLlLuLlon of Lhe sLaLe adopLed ln convenLlon May 13 1868 and raLlfled by
Lhe people uec 1 1869 declares LhaL
1he leglslaLure shall never auLhorlze any loLLery nor shall Lhe sale of loLLery LlckeLs
be allowed nor shall any loLLery hereLofore auLhorlzed be permlLLed Lo be drawn
or LlckeLs Lhereln Lo be sold
1he leglslaLure passed an acL approved !uly 16 1870 enLlLled
An AcL enforclng Lhe provlslons of Lhe ConsLlLuLlon of Lhe SLaLe of Mlsslsslppl
prohlblLlng all klnds of loLLerles wlLhln sald SLaLe and maklng lL unlawful Lo conducL
one ln Lhls sLaLe
1he ALLorneyCeneral of Mlsslsslppl flled March 17 1874 ln Lhe ClrculL CourL of
Warren CounLy ln LhaL sLaLe an lnformaLlon ln Lhe naLure of a poo wottooto
agalnsL !ohn 8 SLone and oLhers alleglng LhaL wlLhouL auLhorlLy or warranL of law
Lhey were Lhen and for Lhe precedlng Lwelve monLhs had been carrylng on a
loLLery or glfL enLerprlse wlLhln sald counLy and sLaLe under Lhe name of 1he
Mlsslsslppl AgrlculLural LducaLlonal
age 101 u S 816
and ManufacLurlng Ald SocleLy 1he lnformaLlon alleges LhaL sald socleLy obLalned
from Lhe leglslaLure a charLer buL seLs up Lhe aforesald consLlLuLlonal provlslon and
Lhe acL of !uly 16 1870 and avers LhaL Lhe charLer was Lhereby vlrLually and ln
effecL repealed
8y Lhelr answer Lhe respondenLs admlL LhaL Lhey were carrylng on a loLLery
enLerprlse under Lhe name menLloned 1hey aver LhaL ln so dolng Lhey were
exerclslng Lhe rlghLs prlvlleges and franchlses conferred by Lhelr charLer and LhaL
Lhey have ln all Lhlngs complled wlLh lLs provlslons 1hey furLher aver LhaL Lhelr
rlghLs and franchlses were noL lmpalred by Lhe consLlLuLlonal provlslon and
leglslaLlve enacLmenL aforesald
1he sLaLe replled Lo Lhe answer by admlLLlng LhaL Lhe respondenLs had ln every
parLlcular conformed Lo Lhe provlslons of Lhelr charLer
1he courL holdlng LhaL Lhe acL of lncorporaLlon had been abrogaLed and annulled
by Lhe consLlLuLlon of 1868 and Lhe leglslaLlon of !uly 16 1870 ad[udged LhaL Lhe
respondenLs be ousLed of and from all Lhe llberLles and prlvlleges franchlses and
emolumenLs exerclsed by Lhem under and by vlrLue of Lhe sald acL
1he [udgmenL was on error afflrmed by Lhe supreme courL and SLone and oLhers
sued ouL Lhls wrlL
M8 CPlLl !uS1lCL WAl1L dellvered Lhe oplnlon of Lhe CourL
lL ls now Loo laLe Lo conLend LhaL any conLracL whlch a sLaLe acLually enLers lnLo
when granLlng a charLer Lo a prlvaLe corporaLlon ls noL wlLhln Lhe proLecLlon of Lhe
clause ln Lhe ConsLlLuLlon of Lhe unlLed sLaLes LhaL prohlblLs sLaLes from passlng
laws lmpalrlng Lhe obllgaLlon of conLracLs ArL 1 sec 10 1he docLrlnes of 1tostees
of uottmootb colleqe v wooJwotJ 4 WheaL 318 announced by Lhls courL more
Lhan slxLy years ago have become so lmbedded ln Lhe [urlsprudence of Lhe unlLed
sLaLes as Lo make Lhem Lo all lnLenLs and purposes a parL of Lhe ConsLlLuLlon lLself
ln Lhls connecLlon however
age 101 u S 817
lL ls Lo be kepL ln mlnd LhaL lL ls noL Lhe charLer whlch ls proLecLed buL only any
conLracL Lhe charLer may conLaln lf Lhere ls no conLracL Lhere ls noLhlng ln Lhe
granL on whlch Lhe ConsLlLuLlon can acL ConsequenLly Lhe flrsL lnqulry ln Lhls class
of cases always ls wheLher a conLracL has ln facL been enLered lnLo and lf so whaL
lLs obllgaLlons are
ln Lhe presenL case Lhe quesLlon ls wheLher Lhe SLaLe of Mlsslsslppl ln lLs soverelgn
capaclLy dld by Lhe charLer now under conslderaLlon blnd lLself lrrevocably by a
conLracL Lo permlL Lhe Mlsslsslppl AgrlculLural LducaLlonal and ManufacLurlng Ald
SocleLy for LwenLyflve years Lo recelve subscrlpLlons and sell and dlspose of
cerLlflcaLes of subscrlpLlon whlch shall enLlLle Lhe holders Lhereof Lo any lands
books palnLlngs anLlques sclenLlflc lnsLrumenLs or apparaLus or any oLher
properLy or Lhlng LhaL may be ornamenLal valuable or useful awarded Lo Lhem
by Lhe casLlng of loLs or by loL chance or oLherwlse 1here can be no dlspuLe buL
LhaL under Lhls form of words Lhe leglslaLure of Lhe sLaLe charLered a loLLery
company havlng all Lhe powers lncldenL Lo such a corporaLlon for LwenLyflve
years and LhaL ln conslderaLlon Lhereof Lhe company pald lnLo Lhe sLaLe Lreasury
$3000 for Lhe use of a unlverslLy and agreed Lo pay and unLll Lhe commencemenL
of Lhls sulL dld pay an annual Lax of $1000 and onehalf of one percenL on Lhe
amounL of recelpLs derlved from Lhe sale of cerLlflcaLes or LlckeLs lf Lhe leglslaLure
LhaL granLed Lhls charLer had Lhe power Lo blnd Lhe people of Lhe sLaLe and all
succeedlng leglslaLures Lo allow Lhe corporaLlon Lo conLlnue lLs corporaLe buslness
durlng Lhe whole Lerm of lLs auLhorlzed exlsLence Lhere ls no doubL abouL Lhe
sufflclency of Lhe language employed Lo effecL LhaL ob[ecL alLhough Lhere was an
evldenL purpose Lo conceal Lhe vlce of Lhe LransacLlon by Lhe phrases LhaL were
used WheLher Lhe alleged conLracL exlsLs Lherefore or noL depends on Lhe
auLhorlLy of Lhe leglslaLure Lo blnd Lhe sLaLe and Lhe people of Lhe sLaLe ln LhaL way
All agree LhaL Lhe leglslaLure cannoL bargaln away Lhe pollce power of a sLaLe
lrrevocable granLs of properLy and franchlses may be made lf Lhey do noL lmpalr
Lhe supreme auLhorlLy Lo make laws for Lhe rlghL governmenL of Lhe sLaLe buL
age 101 u S 818
no leglslaLure can curLall Lhe power of lLs successors Lo make such laws as Lhey may
deem proper ln maLLers of pollce
Mettopolltoo 8ootJ of xclse v 8ottle 34 n? 637 8oyJ v Alobomo 94 u S 643
Many aLLempLs have been made ln Lhls courL and elsewhere Lo deflne Lhe pollce
power buL never wlLh enLlre success lL ls always easler Lo deLermlne wheLher a
parLlcular case comes wlLhln Lhe general scope of Lhe power Lhan Lo glve an
absLracL deflnlLlon of Lhe power lLself whlch wlll be ln all respecLs accuraLe no one
denles however LhaL lL exLends Lo all maLLers affecLlng Lhe publlc healLh or Lhe
133

publlc morals 8eet compooy v Mossocbosetts 97 u S 23 lottetsoo v keotocky
97 u S 301 nelLher can lL be denled LhaL loLLerles are proper sub[ecLs for Lhe
exerclse of Lhls power We are aware LhaL formerly when Lhe sources of publlc
revenue were fewer Lhan now Lhey were used ln some or all of Lhe sLaLes and
even ln Lhe ulsLrlcL of Columbla Lo ralse money for Lhe erecLlon of publlc bulldlngs
maklng publlc lmprovemenLs and noL unfrequenLly for educaLlonal and rellglous
purposes buL Lhls CourL sald more Lhan LhlrLy years ago speaklng Lhrough Mr
!usLlce Crler ln lboleo v vltqlolo 8 Pow 163 49 u S 168 LhaL
experlence has shown LhaL Lhe common forms of gambllng are comparaLlvely
lnnocuous when placed ln conLrasL wlLh Lhe wldespread pesLllence of loLLerles 1he
former are conflned Lo a few persons and places buL Lhe laLLer lnfesLs Lhe whole
communlLy lL enLers every dwelllng lL reaches every class lL preys upon Lhe hard
earnlngs of Lhe poor and lL plunders Lhe lgnoranL and slmple
Papplly under Lhe lnfluence of resLrlcLlve leglslaLlon Lhe evlls are noL so apparenL
now buL we very much fear LhaL wlLh Lhe same opporLunlLles of lndulgence Lhe
same resulLs would be manlfesLed
lf loLLerles are Lo be LoleraLed aL all lL ls no doubL beLLer LhaL Lhey should be
regulaLed by law so LhaL Lhe people may be proLecLed as far as posslble agalnsL Lhe
lnherenL vlces of Lhe sysLem buL LhaL Lhey are demorallzlng ln Lhelr effecLs no
maLLer how carefully regulaLed cannoL admlL of a doubL When Lhe governmenL ls
unLrammeled by any clalm of vesLed rlghLs or charLered prlvlleges no one has ever
supposed LhaL loLLerles could noL lawfully be suppressed and Lhose who manage
Lhem punlshed severely as vlolaLors of Lhe rules of soclal
age 101 u S 819
morallLy lrom 1822 Lo 1867 wlLhouL any consLlLuLlonal requlremenL Lhey were
prohlblLed by law ln Mlsslsslppl and Lhose who conducLed Lhem punlshed as a klnd
of gamblers uurlng Lhe provlslonal governmenL of LhaL sLaLe ln 1867 aL Lhe close
of Lhe laLe clvll war Lhe presenL acL of lncorporaLlon wlLh more of llke characLer
was passed 1he nexL year 1868 Lhe people ln adopLlng a new consLlLuLlon wlLh a
vlew Lo Lhe resumpLlon of Lhelr pollLlcal rlghLs as one of Lhe unlLed sLaLes provlded
LhaL
1he leglslaLure shall never auLhorlze any loLLery nor shall Lhe sale of loLLery LlckeLs
be allowed nor shall any loLLery hereLofore auLhorlzed be permlLLed Lo be drawn
or LlckeLs Lhereln Lo be sold
ArL 12 sec 13 1here ls now scarcely a sLaLe ln Lhe unlon where loLLerles are
LoleraLed and Congress has enacLed a speclal sLaLuLe Lhe ob[ecL of whlch ls Lo close
Lhe malls agalnsL Lhem 8evSLaL sec 3894 19 SLaL 90 sec 2
1he quesLlon ls Lherefore dlrecLly presenLed wheLher ln vlew of Lhese facLs Lhe
leglslaLure of a sLaLe can by Lhe charLer of a loLLery company defeaL Lhe wlll of Lhe
people auLhorlLaLlvely expressed ln relaLlon Lo Lhe furLher conLlnuance of such
buslness ln Lhelr mldsL We Lhlnk lL cannoL no leglslaLure can bargaln away Lhe
publlc healLh or Lhe publlc morals 1he people Lhemselves cannoL do lL much less
Lhelr servanLs 1he supervlslon of boLh Lhese sub[ecLs of governmenLal power ls
conLlnulng ln lLs naLure and Lhey are Lo be dealL wlLh as Lhe speclal exlgencles of
Lhe momenL may requlre CovernmenL ls organlzed wlLh a vlew Lo Lhelr
preservaLlon and cannoL dlvesL lLself of Lhe power Lo provlde for Lhem lor Lhls
purpose Lhe largesL leglslaLlve dlscreLlon ls allowed and Lhe dlscreLlon cannoL be
parLed wlLh any more Lhan Lhe power lLself 8eet compooy v Mossocbosetts sopto
ln 1tostees of uottmootb colleqe v wooJwotJ 4 WheaL 318 lL was argued LhaL
Lhe conLracL clause of Lhe ConsLlLuLlon lf glven Lhe effecL conLended for ln respecL
Lo corporaLe franchlses
would be an unproflLable and vexaLlous lnLerference wlLh Lhe lnLernal concerns of
a sLaLe would unnecessarlly and unwlsely embarrass lLs leglslaLlon and render
lmmuLable Lhose clvll lnsLlLuLlons whlch are esLabllshed for Lhe purpose of lnLernal
governmenL and whlch Lo subserve Lhose purposes oughL
age 101 u S 820
Lo vary wlLh varylng clrcumsLances
p 17 u S 628) buL Mr Chlef !usLlce Marshall when he announced Lhe oplnlon of
Lhe CourL was careful Lo say (p 17 u S 629)
LhaL Lhe framers of Lhe ConsLlLuLlon dld noL lnLend Lo resLraln sLaLes ln Lhe
regulaLlon of Lhelr clvll lnsLlLuLlons adopLed for lnLernal governmenL and LhaL Lhe
lnsLrumenL Lhey have glven us ls noL Lo be so consLrued
1he presenL case we Lhlnk comes wlLhln Lhls llmlLaLlon We have held noL
however wlLhouL sLrong opposlLlon aL Llmes LhaL Lhls clause proLecLed a
corporaLlon ln lLs charLer exempLlons from LaxaLlon Whlle LaxaLlon ls ln general
necessary for Lhe supporL of governmenL lL ls noL parL of Lhe governmenL lLself
CovernmenL was noL organlzed for Lhe purposes of LaxaLlon buL LaxaLlon may be
necessary for Lhe purposes of governmenL As such LaxaLlon becomes an lncldenL
Lo Lhe exerclse of Lhe leglLlmaLe funcLlons of governmenL buL noLhlng more no
governmenL dependenL on LaxaLlon for supporL can bargaln away lLs whole power
of LaxaLlon for LhaL would be subsLanLlally abdlcaLlon All LhaL has been deLermlned
Lhus far ls LhaL for a conslderaLlon lL may ln Lhe exerclse of a reasonable dlscreLlon
and for Lhe publlc good surrender a parL of lLs powers ln Lhls parLlcular
8uL Lhe power of governlng ls a LrusL commlLLed by Lhe people Lo Lhe governmenL
no parL of whlch can be granLed away 1he people ln Lhelr soverelgn capaclLy have
esLabllsh d Lhelr agencles for Lhe preservaLlon of Lhe publlc healLh and Lhe publlc
morals and Lhe proLecLlon of publlc and prlvaLe rlghLs 1hese several agencles can
govern accordlng Lo Lhelr dlscreLlon lf wlLhln Lhe scope of Lhelr general auLhorlLy
whlle ln power buL Lhey cannoL glve away nor sell Lhe dlscreLlon of Lhose LhaL are
Lo come afLer Lhem ln respecL Lo maLLers Lhe governmenL of whlch from Lhe very
naLure of Lhlngs musL vary wlLh varylng clrcumsLances 1hey may creaLe
corporaLlons and glve Lhem so Lo speak a llmlLed clLlzenshlp buL as clLlzens
llmlLed ln Lhelr prlvlleges or oLherwlse Lhese creaLures of Lhe governmenL creaLlon
136

are sub[ecL Lo such rules and regulaLlons as may from Llme Lo Llme be ordalned and
esLabllshed for Lhe preservaLlon of healLh and morallLy
1he conLracLs whlch Lhe ConsLlLuLlon proLecLs are Lhose LhaL relaLe Lo properLy
rlghLs noL governmenLal lL ls noL always
age 101 u S 821
easy Lo Lell on whlch slde of Lhe llne whlch separaLes governmenLal from properLy
rlghLs a parLlcular case ls Lo be puL buL ln respecL Lo loLLerles Lhere can be no
dlfflculLy 1hey are noL ln Lhe legal accepLaLlon of Lhe Lerm molo lo se buL as we
have [usL seen may properly be made molo ptoblblto 1hey are a specles of
gambllng and wrong ln Lhelr lnfluences 1hey dlsLurb Lhe checks and balances of a
well ordered communlLy SocleLy bullL on such a foundaLlon would almosL of
necesslLy brlng forLh a populaLlon of speculaLors and gamblers llvlng on Lhe
expecLaLlon of whaL by Lhe casLlng of loLs or by loL chance or oLherwlse mlghL
be awarded Lo Lhem from Lhe accumulaLlons of oLhers CerLalnly Lhe rlghL Lo
suppress Lhem ls governmenLal Lo be exerclsed aL all Llmes by Lhose ln power aL
Lhelr dlscreLlon Anyone Lherefore who accepLs a loLLery charLer does so wlLh Lhe
lmplled undersLandlng LhaL Lhe people ln Lhelr soverelgn capaclLy and Lhrough
Lhelr properly consLlLuLed agencles may resume lL aL any Llme when Lhe publlc
good shall requlre wheLher lL be pald for or noL All LhaL one can geL by such a
charLer ls a suspenslon of cerLaln governmenLal rlghLs ln hls favor sub[ecL Lo
wlLhdrawal aL wlll Pe has ln legal effecL noLhlng more Lhan a llcense Lo en[oy Lhe
prlvllege on Lhe Lerms named for Lhe speclfled Llme unless lL be sooner abrogaLed
by Lhe soverelgn power of Lhe sLaLe lL ls a permlL good as agalnsL exlsLlng laws buL
sub[ecL Lo fuLure leglslaLlve and consLlLuLlonal conLrol or wlLhdrawal
Cn Lhe whole we flnd no error ln Lhe record
IoJqmeot offltmeJ

Gk No 1001S2 March 31 2000
ACL8LDC C91ICAL CCM9AN INC VS CA
u8lSlMA I
AL bar ls a peLlLlon for revlew under 8ule 43 of Lhe 8ules of CourL seeklng Lo nulllfy
Lhe dlsmlssal by Lhe CourL of Appeals of Lhe orlglnal peLlLlon for cettlototl
prohlblLlon and mooJomos flled by Lhe hereln peLlLloner agalnsL Lhe ClLy Mayor and
ClLy Legal Cfflcer of lllgan and Lhe Samahang CpLomeLrlsL sa lllplnas lllgan
ChapLer (SCl for brevlLy)
1he anLecedenL facLs leadlng Lo Lhe flllng of Lhe lnsLanL peLlLlon are as follows
eLlLloner applled wlLh Lhe Cfflce of Lhe ClLy Mayor of lllgan for a buslness permlL
AfLer conslderaLlon of peLlLloners appllcaLlon and Lhe opposlLlon lnLerposed
LhereLo by local opLomeLrlsLs respondenL ClLy Mayor lssued 8uslness ermlL no
3342 sub[ecL Lo Lhe followlng condlLlons
1 Slnce lL ls a corporaLlon Acebedo cannoL puL up an opLlcal cllnlc buL only a
commerclal sLore
2 Acebedo cannoL examlne and/or prescrlbe readlng and slmllar opLlcal glasses for
paLlenLs because Lhese are funcLlons of opLlcal cllnlcs
3 Acebedo cannoL sell readlng and slmllar eyeglasses wlLhouL a prescrlpLlon havlng
flrsL been made by an lndependenL opLomeLrlsL (noL lLs employee) or lndependenL
opLlcal cllnlc Acebedo can only sell dlrecLly Lo Lhe publlc wlLhouL need of a
prescrlpLlon 8ay8an and slmllar eyeglasses
4 Acebedo cannoL adverLlse opLlcal lenses and eyeglasses buL can adverLlse 8ay
8an and slmllar glasses and frames
3 Acebedo ls allowed Lo grlnd lenses buL only upon Lhe prescrlpLlon of an
lndependenL opLomeLrlsL
1

Cn uecember 3 1988 prlvaLe respondenL Samahan ng CpLomeLrlsL Sa lllplnas
(SCl) lllgan ChapLer Lhrough lLs AcLlng resldenL ur lrances 8 AposLol lodged a
complalnL agalnsL Lhe peLlLloner before Lhe Cfflce of Lhe ClLy Mayor alleglng LhaL
Acebedo had vlolaLed Lhe condlLlons seL forLh ln lLs buslness permlL and requesLlng
Lhe cancellaLlon and/or revocaLlon of such permlL
AcLlng on such complalnL Lhen ClLy Mayor Camllo Cablll deslgnaLed ClLy Legal
Cfflcer Leo 1 Cahanap Lo conducL an lnvesLlgaLlon on Lhe maLLer Cn !uly 12 1989
respondenL ClLy Legal Cfflcer submlLLed a reporL Lo Lhe ClLy Mayor flndlng Lhe
hereln peLlLloner gullLy of vlolaLlng all Lhe condlLlons of lLs buslness permlL and
recommendlng Lhe dlsquallflcaLlon of peLlLloner from operaLlng lLs buslness ln lllgan
ClLy 1he reporL furLher advlsed LhaL no new permlL shall be granLed Lo peLlLloner
for Lhe year 1989 and should only be glven Llme Lo wlnd up lLs affalrs
Cn !uly 19 1989 Lhe ClLy Mayor senL peLlLloner a noLlce of 8esoluLlon and
CancellaLlon of 8uslness ermlL effecLlve as of sald daLe and glvlng peLlLloner Lhree
(3) monLhs Lo wlnd up lLs affalrs
Cn CcLober 17 1989 peLlLloner broughL a peLlLlon for cettlototl prohlblLlon and
mooJomos wlLh prayer for resLralnlng order/prellmlnary ln[uncLlon agalnsL Lhe
respondenLs ClLy Mayor ClLy Legal Cfflcer and Samahan ng CpLomeLrlsLs sa
lllplnaslllgan ClLy ChapLer (SCl) dockeLed as Clvll Case no 1497 before Lhe
8eglonal 1rlal CourL of lllgan ClLy 8ranch l eLlLloner alleged LhaL (1) lL was denled
due process because lL was noL glven an opporLunlLy Lo presenL lLs evldence durlng
Lhe lnvesLlgaLlon conducLed by Lhe ClLy Legal Cfflcer (2) lL was denled equal
proLecLlon of Lhe laws as Lhe llmlLaLlons lmposed on lLs buslness permlL were noL
lmposed on slmllar buslnesses ln lllgan ClLy (3) Lhe ClLy Mayor had no auLhorlLy Lo
lmpose Lhe speclal condlLlons on lLs buslness permlL and (4) Lhe ClLy Legal Cfflcer
had no auLhorlLy Lo conducL Lhe lnvesLlgaLlon as Lhe maLLer falls wlLhln Lhe
excluslve [urlsdlcLlon of Lhe rofesslonal 8egulaLlon Commlsslon and Lhe 8oard of
CpLomeLry
8espondenL SCl lnLerposed a MoLlon Lo ulsmlss Lhe eLlLlon on Lhe ground of non
exhausLlon of admlnlsLraLlve remedles buL on november 24 1989 resldlng !udge
Mamlndlara MangoLara deferred resoluLlon of such MoLlon Lo ulsmlss unLll afLer
137

Lrlal of Lhe case on Lhe merlLs Powever Lhe prayer for a wrlL of prellmlnary
ln[uncLlon was granLed 1hereafLer respondenL SCl flled lLs answer1wpbl1ot
Cn May 30 1990 Lhe Lrlal courL dlsmlssed Lhe peLlLlon for fallure Lo exhausL
admlnlsLraLlve remedles and dlssolved Lhe wrlL of prellmlnary ln[uncLlon lL earller
lssued eLlLloners moLlon for reconslderaLlon meL Lhe same faLe lL was denled by
an Crder daLed !une 28 1990
Cn CcLober 3 1990 lnsLead of Laklng an appeal peLlLloner flled a peLlLlon for
cettlototl prohlblLlon and mandamus wlLh Lhe CourL of Appeals seeklng Lo seL aslde
Lhe quesLloned Crder of ulsmlssal brandlng Lhe same as LalnLed wlLh grave abuse
of dlscreLlon on Lhe parL of Lhe Lrlal courL
Cn !anuary 24 1991 Lhe nlnLh ulvlslon
2
of Lhe CourL of Appeals dlsmlssed Lhe
peLlLlon for lack of merlL eLlLloners moLlon reconslderaLlon was also denled ln Lhe
8esoluLlon daLed May 13 1991
undaunLed peLlLloner has come before Lhls courL vla Lhe presenL peLlLlon
Lheorlzlng LhaL
A
1PL 8LSCnuLn1 CCu81 WPlLL CC88LC1L? PCLulnC 1PA1 1PL 8LSCnuLn1
Cl1? MA?C8 AC1Lu 8L?Cnu PlS Au1PC8l1? ln lMCSlnC 1PL SLClAL
CCnul1lCnS ln 1PL L8Ml1 AS 1PL? PAu nC 8ASlS ln An? LAW C8 C8ulnAnCL
L88Lu ln PCLulnC 1PA1 1PL SAlu SLClAL CCnul1lCnS nLvL81PLLLSS 8LCAML
8lnulnC Cn L1l1lCnL8 uCn l1S ACCL1AnCL 1PL8LCl AS A 8lvA1L
AC8LLMLn1 C8 CCn18AC1
8
1PL 8LSCnuLn1 CCu81 Cl ALALS L88Lu ln PCLulnC 1PA1 1PL CCn18AC1
8L1WLLn L1l1lCnL8 Anu 1PL Cl1? Cl lLlCAn WAS Ln1L8Lu ln1C 8? 1PL LA11L8
ln 1PL L8lC8MAnCL Cl l1S 8C8lL1A8? lunC1lCnS
1he peLlLlon ls lmpressed wlLh merlL
AlLhough peLlLloner agrees wlLh Lhe flndlng of Lhe CourL of Appeals LhaL respondenL
ClLy Mayor acLed beyond Lhe scope of hls auLhorlLy ln lmposlng Lhe assalled
condlLlons ln sub[ecL buslness permlL lL has excepLed Lo Lhe rullng of Lhe CourL of
Appeals LhaL Lhe sald condlLlons noneLheless became blndlng on peLlLloner once
accepLed as a prlvaLe agreemenL or conLracL eLlLloner malnLalns LhaL Lhe sald
speclal condlLlons are null and vold for belng oltto vltes and cannoL be glven effecL
and Lherefore Lhe prlnclple of esLoppel cannoL apply agalnsL lL
Cn Lhe oLher hand Lhe publlc respondenLs ClLy Mayor and ClLy Legal Cfflcer
prlvaLe respondenL SCl and Lhe Cfflce of Lhe SollclLor Ceneral conLend LhaL as a
valld exerclse of pollce power respondenL ClLy Mayor has Lhe auLhorlLy Lo lmpose
as he dld speclal condlLlons ln Lhe granL of buslness permlLs
ollce power as an lnherenL aLLrlbuLe of soverelgnLy ls Lhe power Lo prescrlbe
regulaLlons Lo promoLe Lhe healLh morals peace educaLlon good order or safeLy
and general welfare of Lhe people
9
1he SLaLe Lhrough Lhe leglslaLure has
delegaLed Lhe exerclse of pollce power Lo local governmenL unlLs as agencles of Lhe
SLaLe ln order Lo effecLlvely accompllsh and carry ouL Lhe declared ob[ecLs of Lhelr
creaLlon
4
1hls delegaLlon of pollce power ls embodled ln Lhe general welfare
clause of Lhe Local CovernmenL Code whlch provldes
Sec 6 Ceoetol welfote Lvery local governmenL unlL shall exerclse Lhe powers
expressly granLed Lhose necessarlly lmplled Lherefrom as well as powers
necessary approprlaLe or lncldenLal for lLs efflclenL and effecLlve governance and
Lhose whlch are essenLlal Lo Lhe promoLlon of Lhe general welfare WlLhln Lhelr
respecLlve LerrlLorlal [urlsdlcLlons local governmenL unlLs shall ensure and supporL
among oLher Lhlngs Lhe preservaLlon and enrlchmenL of culLure promoLe healLh
and safeLy enhance Lhe rlghL of Lhe people Lo a balanced ecology encourage and
supporL Lhe developmenL of approprlaLe and selfrellanL sclenLlflc and Lechnologlcal
capablllLles lmprove publlc morals enhance economlc prosperlLy and soclal [usLlce
promoLe full employmenL among Lhelr resldenLs malnLaln peace and order and
preserve Lhe comforL and convenlence of Lhelr lnhablLanLs
1he scope of pollce power has been held Lo be so comprehenslve as Lo encompass
almosL all maLLers affecLlng Lhe healLh safeLy peace order morals comforL and
convenlence of Lhe communlLy ollce power ls essenLlally regulaLory ln naLure and
Lhe power Lo lssue llcenses or granL buslness permlLs lf exerclsed for a regulaLory
and noL revenueralslng purpose ls wlLhln Lhe amblL of Lhls power
3

1he auLhorlLy of clLy mayors Lo lssue or granL llcenses and buslness permlLs ls
beyond cavll lL ls provlded for by law SecLlon 171 paragraph 2 (n) of 8aLas
ambansa 8llang 337 oLherwlse known as Lhe Local CovernmenL Code of 1983
reads
Sec 171 1be clty Moyot sboll
xxx xxx xxx
n) CranL or refuse Lo granL pursuanL Lo law clLy llcenses or permlLs and revoke Lhe
same for vlolaLlon of law or ordlnance or Lhe condlLlons upon whlch Lhey are
granLed
Powever Lhe power Lo granL or lssue llcenses or buslness permlLs musL always be
exerclsed ln accordance wlLh law wlLh uLmosL observance of Lhe rlghLs of all
concerned Lo due process and equal proLecLlon of Lhe law
SucclncL and ln polnL ls Lhe rullng of Lhls CourL LhaL
Whlle a buslness may be regulaLed such regulaLlon musL however be wlLhln
Lhe bounds of reason le Lhe regulaLory ordlnance musL be reasonable and lLs
provlslon cannoL be oppresslve amounLlng Lo an arblLrary lnLerference wlLh Lhe
buslness or calllng sub[ecL of regulaLlon A lawful buslness or calllng may noL under
Lhe gulse of regulaLlon be unreasonably lnLerfered wlLh even by Lhe exerclse of
pollce power
xxx xxx xxx
1he exerclse of pollce power by Lhe local governmenL ls valld unless lL
conLravenes Lhe fundamenLal law of Lhe land or an acL of Lhe leglslaLure or unless lL
138

ls agalnsL publlc pollcy or ls unreasonable oppresslve parLlal dlscrlmlnaLlng or ln
derogaLlon of a common rlghL
6

ln Lhe case under conslderaLlon Lhe buslness permlL granLed by respondenL ClLy
Mayor Lo peLlLloner was burdened wlLh several condlLlons eLlLloner agrees wlLh
Lhe holdlng by Lhe CourL of Appeals LhaL respondenL ClLy Mayor acLed beyond hls
auLhorlLy ln lmposlng such speclal condlLlons ln lLs permlL as Lhe same have no basls
ln Lhe law or ordlnance ubllc respondenLs and prlvaLe respondenL SCl on Lhe
oLher hand are one ln saylng LhaL Lhe lmposlLlon of sald speclal condlLlons on
peLlLloners buslness permlL ls well wlLhln Lhe auLhorlLy of Lhe ClLy Mayor as a valld
exerclse of pollce power
As apLly dlscussed by Lhe SollclLor Ceneral ln hls CommenL Lhe power Lo lssue
llcenses and permlLs necessarlly lncludes Lhe corollary power Lo revoke wlLhdraw
or cancel Lhe same And Lhe power Lo revoke or cancel llkewlse lncludes Lhe power
Lo resLrlcL Lhrough Lhe lmposlLlon of cerLaln condlLlons ln Lhe case of Aostlo
notJwote loc vs coott of Appeols
7
lL was held LhaL Lhe power Lo llcense carrles
wlLh lL Lhe auLhorlLy Lo provlde reasonable Lerms and condlLlons under whlch Lhe
llcensed buslness shall be conducLed As Lhe SollclLor Ceneral puLs lL
lf Lhe ClLy Mayor ls empowered Lo granL or refuse Lo granL a llcense whlch ls a
broader power lL sLands Lo reason LhaL he can also exerclse a lesser power LhaL ls
reasonably lncldenLal Lo hls express power le Lo resLrlcL a llcense Lhrough Lhe
lmposlLlon of cerLaln condlLlons especlally so LhaL Lhere ls no poslLlve prohlblLlon Lo
Lhe exerclse of such prerogaLlve by Lhe ClLy Mayor nor ls Lhere any parLlcular
offlclal or body vesLed wlLh such auLhorlLy
8

Powever Lhe presenL lnqulry does noL sLop Lhere as Lhe SollclLor Ceneral belleves
1he power or auLhorlLy of Lhe ClLy Mayor Lo lmpose condlLlons or resLrlcLlons ln Lhe
buslness permlL ls lndlspuLable WhaL peLlLloner assalls are Lhe condlLlons lmposed
ln lLs parLlcular case whlch lL complalns amounL Lo a conflscaLlon of Lhe buslness ln
whlch peLlLloner ls engaged
ulsLlncLlon musL be made beLween Lhe granL of a llcense or permlL Lo do buslness
and Lhe lssuance of a llcense Lo engage ln Lhe pracLlce of a parLlcular professlon
1he flrsL ls usually granLed by Lhe local auLhorlLles and Lhe second ls lssued by Lhe
8oard or Commlsslon Lasked Lo regulaLe Lhe parLlcular professlon A buslness
permlL auLhorlzes Lhe person naLural or oLherwlse Lo engage ln buslness or some
form of commerclal acLlvlLy A professlonal llcense on Lhe oLher hand ls Lhe granL
of auLhorlLy Lo a naLural person Lo engage ln Lhe pracLlce or exerclse of hls or her
professlon
ln Lhe case aL bar whaL ls soughL by peLlLloner from respondenL ClLy Mayor ls a
permlL Lo engage ln Lhe buslness of runnlng an opLlcal shop lL does noL purporL Lo
seek a llcense Lo engage ln Lhe pracLlce of opLomeLry as a corporaLe body or enLlLy
alLhough lL does have ln lLs employ persons who are duly llcensed Lo pracLlce
opLomeLry by Lhe 8oard of Lxamlners ln CpLomeLry
1he case of 5omoboo oq Optomettlsts so llllploos vs AcebeJo lotetootloool
cotpototloo C8 no 117097
9
promulgaLed by Lhls CourL on March 21 1997 ls ln
polnL 1he facLual anLecedenLs of LhaL case are slmllar Lo Lhose of Lhe case under
conslderaLlon and Lhe lssue ulLlmaLely resolved Lhereln ls exacLly Lhe same lssue
posed for resoluLlon by Lhls CourL eo booc
ln Lhe sald case Lhe Acebedo lnLernaLlonal CorporaLlon flled wlLh Lhe Cfflce of Lhe
Munlclpal Mayor an appllcaLlon for a buslness permlL for Lhe operaLlon of a branch
of Acebedo CpLlcal ln Candon llocos Sur 1he appllcaLlon was opposed by Lhe
Samahan ng CpLomeLrlsLs sa lllplnasllocos Sur ChapLer Lheorlzlng LhaL Acebedo ls
a [urldlcal enLlLy noL quallfled Lo pracLlce opLomeLry A commlLLee was creaLed by
Lhe Cfflce of Lhe Mayor Lo sLudy prlvaLe respondenLs appllcaLlon upon
recommendaLlon of Lhe sald commlLLee Acebedos appllcaLlon for a buslness
permlL was denled Acebedo flled a peLlLlon wlLh Lhe 8eglonal 1rlal CourL buL Lhe
same was dlsmlssed Cn appeal however Lhe CourL of Appeals reversed Lhe Lrlal
courLs dlsposlLlon prompLlng Lhe Samahan ng CpLomeLrlsLs Lo elevaLe Lhe maLLer
Lo Lhls CourL
1he llrsL ulvlslon of Lhls CourL Lhen composed of Ponorable !usLlce 1eodoro
adllla !osue 8elloslllo !ose vlLug and SanLlago kapunan wlLh Ponorable !usLlce
8eglno Permoslslma !r as pooeote denled Lhe peLlLlon and ruled ln favor of
respondenL Acebedo lnLernaLlonal CorporaLlon holdlng LhaL Lhe facL LhaL prlvaLe
respondenL hlres opLomeLrlsLs who pracLlce Lhelr professlon ln Lhe course of Lhelr
employmenL ln prlvaLe respondenLs opLlcal shops does noL LranslaLe lnLo a
pracLlce of opLomeLry by prlvaLe respondenL lLself
10
1he CourL furLher elucldaLed
LhaL ln boLh Lhe old and new CpLomeLry Law 8A no 1998 superseded by 8A no
8030 lL ls slgnlflcanL Lo noLe LhaL Lhere ls no prohlblLlon agalnsL Lhe hlrlng by
corporaLlons of opLomeLrlsLs 1he CourL concluded Lhus
All Lold Lhere ls no law LhaL prohlblLs Lhe hlrlng by corporaLlons of opLomeLrlsLs or
conslders Lhe hlrlng by corporaLlons of opLomeLrlsLs as a pracLlce by Lhe
corporaLlon lLself of Lhe professlon of opLomeLry
ln Lhe presenL case Lhe ob[ecLlve of Lhe lmposlLlon of sub[ecL condlLlons on
peLlLloners buslness permlL could be aLLalned by requlrlng Lhe opLomeLrlsLs ln
peLlLloners employ Lo produce a valld cerLlflcaLe of reglsLraLlon as opLomeLrlsL
from Lhe 8oard of Lxamlners ln CpLomeLry A buslness permlL ls lssued prlmarlly Lo
regulaLe Lhe conducL of buslness and Lhe ClLy Mayor cannoL Lhrough Lhe lssuance
of such permlL regulaLe Lhe pracLlce of a professlon llke LhaL of opLomeLry Such a
funcLlon ls wlLhln Lhe excluslve domaln of Lhe admlnlsLraLlve agency speclflcally
empowered by law Lo supervlse Lhe professlon ln Lhls case Lhe rofesslonal
8egulaLlons Commlsslon and Lhe 8oard of Lxamlners ln CpLomeLry
lL ls slgnlflcanL Lo noLe LhaL durlng Lhe dellberaLlons of Lhe blcameral conference
commlLLee of Lhe SenaLe and Lhe Pouse of 8epresenLaLlves on 8A 8030 (SenaLe
8lll no 1998 and Pouse 8lll no 14100) Lhe commlLLee falled Lo reach a consensus
139

as Lo Lhe prohlblLlon on lndlrecL pracLlce of opLomeLry by corporaLlons 1he
proponenL of Lhe blll former SenaLor lreddle Webb admlLLed Lhus
5eootot webb xxx xxx xxx
1he focus of conLenLlon remalns Lo be Lhe proposal of prohlblLlng Lhe lndlrecL
pracLlce of opLomeLry by corporaLlons We Look a second look and even a Lhlrd look
aL Lhe lssue ln Lhe blcameral conference buL a compromlse remalned eluslve
11

lormer SenaLor LeLlcla 8amosShahanl llkewlse voLed her reservaLlon ln casLlng her
voLe
5eootot 5bobool Mr resldenL
1he opLomeLry bllls have evoked conLroverslal vlews from Lhe members of Lhe
panel Whlle we reallze Lhe need Lo upllfL Lhe sLandards of opLomeLry as a
professlon Lhe consesnsus of boLh Pouses was Lo avold Louchlng senslLlve lssues
whlch properly belong Lo [udlclal deLermlnaLlon 1hus Lhe blcameral conference
commlLLee declded Lo leave Lhe lssue of lndlrecL pracLlce of opLomeLry and Lhe use
of Lrade names open Lo Lhe wlsdom of Lhe CourLs whlch are vesLed wlLh Lhe
prerogaLlve of lnLerpreLlng Lhe laws
12

lrom Lhe foregolng lL ls Lhus evldenL LhaL Congress has noL adopLed a unanlmous
poslLlon on Lhe maLLer of prohlblLlon of lndlrecL pracLlce of opLomeLry by
corporaLlons speclflcally on Lhe hlrlng and employmenL of llcensed opLomeLrlsLs by
opLlcal corporaLlons lL ls clear LhaL Congress lefL Lhe resoluLlon of such lssue for
[udlclal deLermlnaLlon and lL ls Lherefore proper for Lhls CourL Lo resolve Lhe lssue
Lven ln Lhe unlLed SLaLes [urlsprudence varles and Lhere ls a confllcL of oplnlons
among Lhe federal courLs as Lo Lhe rlghL of a corporaLlon or lndlvldual noL hlmself
llcensed Lo hlre and employ llcensed opLomeLrlsLs
13

CourLs have dlsLlngulshed beLween opLomeLry as a learned professlon ln Lhe
caLegory of law and medlclne and opLomeLry as a mechanlcal arL And lnsofar as
Lhe courLs regard opLomeLry as merely a mechanlcal arL Lhey have Lended Lo flnd
noLhlng ob[ecLlonable ln Lhe maklng and selllng of eyeglasses specLacles and lenses
by corporaLlons so long as Lhe paLlenL ls acLually examlned and prescrlbed for by a
quallfled pracLlLloner 1he prlmary purpose of Lhe sLaLuLe regulaLlng Lhe pracLlce of
opLomeLry ls Lo lnsure LhaL opLomeLrlcal servlces are Lo be rendered by compeLenL
and llcensed persons ln order Lo proLecL Lhe healLh and physlcal welfare of Lhe
people from Lhe dangers engendered by unllcensed pracLlce Such purpose may be
fully accompllshed alLhough Lhe person renderlng Lhe servlce ls employed by a
corporaLlon lurLhermore lL was ruled LhaL Lhe employmenL of a quallfled
opLomeLrlsL by a corporaLlon ls noL agalnsL publlc pollcy
16
unless prohlblLed by
sLaLuLes a corporaLlon has all Lhe conLracLual rlghLs LhaL an lndlvldual has
17
and lL
does noL become Lhe pracLlce of medlclne or opLomeLry because of Lhe presence of
a physlclan or opLomeLrlsL
18
1he manufacLurlng selllng Lradlng and barLerlng of
eyeglasses and specLacles as arLlcles of merchandlse do noL consLlLuLe Lhe pracLlce
of opLomeLry ln Lhe case of uvotloe vs costelbetq Iewelty cotpototloo
20

defendanL corporaLlon conducLed as parL of lLs buslness a deparLmenL for Lhe sale
of eyeglasses and Lhe furnlshlng of opLomeLrlcal servlces Lo lLs cllenLs lL employed a
reglsLered opLomeLrlsL who was compensaLed aL a regular salary and commlsslon
and who was furnlshed lnsLrumenLs and appllances needed for Lhe work as well as
an offlce ln holdlng LhaL corporaLlon was noL engaged ln Lhe pracLlce of opLomeLry
Lhe courL ruled LhaL Lhere ls no publlc pollcy forblddlng Lhe commerclallzaLlon of
opLomeLry as ln law and medlclne and recognlzed Lhe general pracLlce of maklng lL
a commerclal buslness by adverLlslng and selllng eyeglasses
1o accompllsh Lhe ob[ecLlve of Lhe regulaLlon a sLaLe may provlde by sLaLuLe LhaL
corporaLlons cannoL sell eyeglasses specLacles and lenses unless a duly llcensed
physlclan or a duly quallfled opLomeLrlsL ls ln charge of and ln personal aLLendance
aL Lhe place where such arLlcles are sold
21
ln such a case Lhe paLlenLs prlmary and
essenLlal safeguard lles ln Lhe opLomeLrlsLs conLrol of Lhe LreaLmenL by means of
prescrlpLlon and prellmlnary and flnal
examlnaLlon
22

ln analogy lL ls noLeworLhy LhaL prlvaLe hosplLals are malnLalned by corporaLlons
lncorporaLed for Lhe purpose of furnlshlng medlcal and surglcal LreaLmenL ln Lhe
course of provldlng such LreaLmenLs Lhese corporaLlons employ physlclans
surgeons and medlcal pracLlLloners ln Lhe same way LhaL ln Lhe course of
manufacLurlng and selllng eyeglasses eye frames and opLlcal lenses opLlcal shops
hlre llcensed opLomeLrlsLs Lo examlne prescrlbe and dlspense ophLhalmlc lenses
no one has ever charged LhaL Lhese corporaLlons are engaged ln Lhe pracLlce of
medlclne 1here ls lndeed no valld basls for LreaLlng corporaLlons engaged ln Lhe
buslness of runnlng opLlcal shops dlfferenLly
lL also bears sLresslng as peLlLloner has polnLed ouL LhaL Lhe publlc and prlvaLe
respondenLs dld noL appeal from Lhe rullng of Lhe CourL of Appeals ConsequenLly
Lhe holdlng by Lhe CourL of Appeals LhaL Lhe acL of respondenL ClLy Mayor ln
lmposlng Lhe quesLloned speclal condlLlons on peLlLloners buslness permlL ls oltto
vltes cannoL be puL lnLo lssue here by Lhe respondenLs lL ls wellseLLled LhaL
A parLy who has noL appealed from Lhe declslon may noL obLaln any afflrmaLlve
rellef from Lhe appellaLe courL oLher Lhan whaL he had obLaln from Lhe lower courL
lf any whose declslon ls broughL up on appeal
23

an appellee who ls noL an appellanL may asslgn errors ln hls brlef where hls
purpose ls Lo malnLaln Lhe [udgmenL on oLher grounds buL he cannoL seek
modlflcaLlon or reversal of Lhe [udgmenL or afflrmaLlve rellef unless he has also
appealed
24

1hus respondenLs submlsslon LhaL Lhe lmposlLlon of sub[ecL speclal condlLlons on
peLlLloners buslness permlL ls noL oltto vltes cannoL prevall over Lhe flndlng and
rullng by Lhe CourL of Appeals from whlch Lhey (respondenLs) dld noL appeal
AnenL Lhe second asslgned error peLlLloner malnLalns LhaL lLs buslness permlL
lssued by Lhe ClLy Mayor ls noL a conLracL enLered lnLo by lllgan ClLy ln Lhe exerclse
of lLs proprleLary funcLlons such LhaL alLhough peLlLloner agreed Lo such condlLlons
lL cannoL be held ln esLoppel slnce oltto vltes acLs cannoL be glven effecL
160

8espondenLs on Lhe oLher hand agree wlLh Lhe rullng of Lhe CourL of Appeals LhaL
Lhe buslness permlL ln quesLlon ls ln Lhe naLure of a conLracL beLween lllgan ClLy
and Lhe hereln peLlLloner Lhe Lerms and condlLlons of whlch are blndlng upon
agreemenL and LhaL peLlLloner ls esLopped from quesLlonlng Lhe same Moreover
ln Lhe 8esoluLlon denylng peLlLloners moLlon for reconslderaLlon Lhe CourL of
Appeals held LhaL Lhe conLracL beLween Lhe peLlLloner and Lhe ClLy of lllgan was
enLered lnLo by Lhe laLLer ln Lhe performance of lLs proprleLary funcLlons
1hls CourL holds oLherwlse lL had occaslon Lo rule LhaL a llcense or permlL ls noL ln
Lhe naLure of a conLracL buL a speclal prlvllege
a llcense or a permlL ls noL a conLracL beLween Lhe soverelgnLy and Lhe llcensee
or permlLee and ls noL a properLy ln Lhe consLlLuLlonal sense as Lo whlch Lhe
consLlLuLlonal proscrlpLlon agalnsL lmpalrmenL of Lhe obllgaLlon of conLracLs may
exLend A llcense ls raLher ln Lhe naLure of a speclal prlvllege of a permlsslon or
auLhorlLy Lo do whaL ls wlLhln lLs Lerms lL ls noL ln any way vesLed permanenL or
absoluLe
23

lL ls Lherefore declslvely clear LhaL esLoppel cannoL apply ln Lhls case 1he facL LhaL
peLlLloner acqulesced ln Lhe speclal condlLlons lmposed by Lhe ClLy Mayor ln sub[ecL
buslness permlL does noL preclude lL from challenglng Lhe sald lmposlLlon whlch ls
oltto vltes or beyond Lhe amblL of auLhorlLy of respondenL ClLy Mayor ultto vltes
acLs or acLs whlch are clearly beyond Lhe scope of ones auLhorlLy are null and vold
and cannoL be glven any effecL 1he docLrlne of esLoppel cannoL operaLe Lo glve
effecL Lo an acL whlch ls oLherwlse null and vold or oltto vltes
1he CourL of Appeals erred ln ad[udglng sub[ecL buslness permlL as havlng been
lssued by responded ClLy Mayor ln Lhe performance of proprleLary funcLlons of
lllgan ClLy As herelnabove elaboraLed upon Lhe lssuance of buslness llcenses and
permlLs by a munlclpallLy or clLy ls essenLlally regulaLory ln naLure 1he auLhorlLy
whlch devolved upon local governmenL unlLs Lo lssue or granL such llcenses or
permlLs ls essenLlally ln Lhe exerclse of Lhe pollce power of Lhe SLaLe wlLhln Lhe
conLemplaLlon of Lhe general welfare clause of Lhe Local CovernmenL Code
WPL8LlC8L Lhe peLlLlon ls C8An1Lu Lhe ueclslon of Lhe CourL of Appeals ln CA
C8 S no 22993 8LvL8SLu and Lhe respondenL ClLy Mayor ls hereby ordered Lo
relssue peLlLloners buslness permlL ln accordance wlLh law and wlLh Lhls
dlsposlLlon no pronouncemenL as Lo cosLs
C8 no 108013 May 20 1998
C8lS1lnA uL knLCP1 and 8LnL knLCP1 peLlLloners
vs
PCn CCu81 Cl ALALS PCn MAnuLL uuMA1CL as !udge 8eglonal 1rlal CourL
8ranch 112 asay ClLy PCn CCnCPl1A C MC8ALLS as !udge 8eglonal 1rlal
CourL 8ranch 110 asay ClLy PCn Au8C8A nAvA8L11L8LClnA as !udge
8eglonal 1rlal CourL 8ranch 119 asay ClLy PCn SCl8CnlC C SA?C as !udge
8eglonal 1rlal CourL 8ranch 111 asay ClLy 8Lu8LlC Cl 1PL PlLllnLS SS
MA8lAnC AnACC8L1A nCCCM SALLM lnvLS1MLn1 CC8C8A1lCn SS
AnAS1AClC lLLlSA 8A8lL8A and SS ALL!Anu8C lLC8 SAnCALAnC
respondenLs

Gk No 109234 May 20 1998
CkIS1INA DL kNLC1 VS CA

unC I
ln C8 no 108013 peLlLloners CrlsLlna de knechL and 8ene knechL seek Lo annul
and seL aslde Lhe declslon of Lhe CourL of Appeals
1
ln CAC8 S no 28089
dlsmlsslng an acLlon Lo annul (1) Lhe declslon and order of Lhe 8eglonal 1rlal CourL
8ranch 112 asay ClLy
2
ln L8C Case no 2636 (2) Lhe order of Lhe 8eglonal 1rlal
CourL 8ranch 110 asay ClLy
3
ln L8C Case no 2632 and (3) Lhe orders of
dlsmlssal by 8eglonal 1rlal CourL 8ranch 119 asay ClLy ln Clvll Case no 2961
4

and (4) Lhe orders and Lhe wrlL of possesslon lssued by Lhe 8eglonal 1rlal CourL
8ranch 111 asay ClLy
3
ln Clvll Case no 7327
ln C8 no 109234 peLlLloners CrlsLlna de knechL and 8ene knechL seek Lo annul
Lhe declslon of Lhe CourL of Appeals
6
ln CAC8 S no 27817 whlch dlsmlssed Lhe
peLlLlon for cettlototl quesLlonlng Lhe order of Lhe 8eglonal 1rlal CourL 8ranch 111
asay ClLy
7
denylng lLs MoLlon for lnLervenLlon and Lo lmplead AddlLlonal arLles
ln Clvll Case no 7327
1he lnsLanL case ls an unendlng sequel Lo several sulLs commenced almosL LwenLy
years ago over Lhe same sub[ecL maLLer 1hls lnvolves a parcel of land wlLh an area
of 810268 square meLers more or less locaLed aL Lhe corner of Lhe souLh end of
Lhe L de los SanLos Avenue (LuSA)
8
and l8 Parrlson ln asay ClLy 1he land was
owned by peLlLloners CrlsLlna de knechL and her son 8ene knechL under 1ransfer
CerLlflcaLe of 1lLle (1C1) no 9032 lssued ln Lhelr names by Lhe 8eglsLer of ueeds of
asay ClLy Cn Lhe land Lhe knechLs consLrucLed elghL (8) houses of sLrong
maLerlals leased ouL Lhe seven and occupled one of Lhem as Lhelr resldence
ln 1979 Lhe 8epubllc of Lhe hlllpplnes lnlLlaLed Clvll Case no 7001 for
exproprlaLlon agalnsL Lhe knechLs properLy before Lhe Lhen CourL of llrsL lnsLance
of 8lzal 8ranch 111 asay ClLy
9
1he governmenL soughL Lo uLlllze Lhe land for Lhe
compleLlon of Lhe Manlla llood ConLrol and uralnage ro[ecL and Lhe exLenslon of
Lhe LuSA Lowards 8oxas 8oulevard
1he Cll lssued a wrlL of possesslon Cn peLlLlon of Lhe knechLs however Lhls CourL
ln C8 no L31078 held LhaL Lhe cholce of area for Lhe exLenslon of LuSA was
arblLrary We annulled Lhe wrlL of possesslon and en[olned Lhe Lrlal courL from
Laklng furLher acLlon Clvll Case no 7001
10

ln 1982 Lhe ClLy 1reasurer of asay dlscovered LhaL Lhe knechLs falled Lo pay real
esLaLe Laxes on Lhe properLy from 1980 Lo 1982
11
As a consequence of Lhls
deflclency Lhe ClLy 1reasurer sold Lhe properLy aL publlc aucLlon on May 27 1982
for Lhe sum of 6300000 Lhe amounL of Lhe deflclency Laxes
12
1he hlghesL
161

bldders were respondenL Spouses AnasLaclo and lellsa 8ablera (Lhe 8ableras) and
respondenL Spouses Ale[andro and llor Sangalang (Lhe Sangalangs)
eLlLloners falled Lo redeem Lhe properLy wlLhln one year from Lhe daLe of sale ln
AugusL 1983 AnasLaclo 8ablera flled wlLh respondenL 8eglonal 1rlal CourL 8ranch
112 asay ClLy a peLlLlon for reglsLraLlon of hls name as coowner prolndlvlso of
Lhe sub[ecL land 1hls case was dockeLed as L8C Case no 2636p
13
and was flled
allegedly wlLhouL noLlce Lo Lhe knechLs Cn SepLember 13 1983 Lhe Lrlal courL
ordered Lhe 8eglsLer of ueeds Lo reglsLer 8ableras name and Lhe knechLs Lo
surrender Lo Lhe 8eglsLer of ueeds Lhe owners dupllcaLe of Lhe LlLle
ln CcLober 1983 Ale[andro Sangalang flled L8C Case no 2632 before Lhe 8eglonal
1rlal CourL 8ranch 110 asay ClLy
14
Sangalang also soughL Lo reglsLer hls name as
coowner prolndlvlso of Lhe sub[ecL properLy 1he proceedlngs were also
conducLed allegedly wlLhouL noLlce Lo Lhe knechLs 1he Lrlal courL granLed Lhe
peLlLlon and ordered Lhe 8eglsLer of ueeds asay ClLy Lo cancel 1C1 no 9032 ln Lhe
name of Lhe knechLs and lssue a new one ln Lhe names of 8ablera and Sangalang
ursuanL Lo sald orders Lhe 8eglsLer of ueeds cancelled 1C1 no 9032 and lssued
1C1 no 86670 ln Lhe names of Sangalang and 8ablera 1he knechLs who were ln
possesslon of Lhe properLy allegedly learned of Lhe aucLlon sale only by Lhe Llme
Lhey recelved Lhe orders of Lhe land reglsLraLlon courLs
Cn March 12 1983 Sangalang and 8ablera sold Lhe land Lo respondenL Salem
lnvesLmenL CorporaLlon (Salem) for 40000000 1C1 no 86670 was cancelled and
1C1 no 94039 was lssued ln Lhe name of Salem
Meanwhlle on lebruary 17 1983 Lhe 8aLasang ambansa passed 8 8lg 340
auLhorlzlng Lhe naLlonal governmenL Lo exproprlaLe cerLaln properLles ln asay ClLy
for Lhe LuSA LxLenslon Lhe LuSA CuLfall of Lhe Manlla llood ConLrol and uralnage
ro[ecL and Lhe CuLCff of Lhe LsLero 1rlpa de Calllna whlch were all pro[ecLs of
Lhe naLlonal CovernmenL
13
1he properLy of Lhe knechLs was parL of Lhose
exproprlaLed under 8 8lg 340
ln vlew of Lhls CourLs prevlous rullng ln C8 no L31078
16
annulllng Lhe
exproprlaLlon proceedlngs ln Clvll Case no 7001 Lhe governmenL apprlsed Lhls
CourL of Lhe subsequenL enacLmenL of 8 8lg 340 Cn lebruary 12 1990 we
rendered a declslon upholdlng Lhe valldlLy of 8 8lg 340 ln C8 no 87333
17

Whlle C8 no 87333 was pendlng ln courL on !une 24 1983 Lhe knechLs flled Clvll
Case no 2961 before Lhe 8eglonal 1rlal CourL 8ranch 119 asay ClLy
18
1hey
prayed for reconveyance annulmenL of Lhe Lax sale and Lhe LlLles of Lhe 8ableras
and Sangalangs 1he knechLs based Lhelr acLlon on lack of Lhe requlred noLlces Lo
Lhe Lax sale
ln Lhe same case Salem flled on SepLember 26 1983 a peLlLlon for appolnLmenL of
a recelver 1he courL granLed Lhe peLlLlon and on november 7 1983 appolnLed
MeLropollLan 8ank and 1rusL Company as recelver 1he knechLs quesLloned Lhls
appolnLmenL on a peLlLlon for cettlototl before Lhe CourL of Appeals ln CAC8 S
no 08178 1he CourL of Appeals dlsmlssed Lhe peLlLlon whlch Lhls CourL afflrmed ln
C8 no 73609 on !anuary 28 1987
Meanwhlle Clvll Case no 2961 proceeded before 8ranch 119 1he knechLs
presenLed Lhelr evldence 1hey however repeaLedly requesLed for posLponemenLs
19
AL Lhe hearlng of SepLember 13 1988 Lhey and Lhelr counsel falled Lo appear
Accordlngly Lhe Lrlal courL dlsmlssed Lhe case for apparenL lack of lnLeresL of
plalnLlffs conslderlng LhaL Lhe case had been pendlng for an unreasonable
lengLh of Llme
20

1he knechLs moved Lo seL aslde Lhe order of dlsmlssal 1he moLlon was denled for
laLe flllng and fallure Lo furnlsh a copy Lo Lhe oLher parLles
21
1he knechLs
quesLloned Lhe order of dlsmlssal before Lhe CourL of Appeals 1he appellaLe courL
susLalned Lhe Lrlal courL 1hey elevaLed Lhe case Lo Lhls CourL ln C8 no 89862 1he
peLlLlon was denled for laLe paymenL of flllng fees and for fallure Lo sufflclenLly
show any reverslble error
22
Cn !anuary 17 1990 Lhe peLlLlon was denled wlLh
flnallLy
23
and enLry of [udgmenL was made on lebruary 19 1990
24

1hree (3) monLhs laLer on May 13 1990 Lhe 8epubllc of Lhe hlllpplnes Lhrough
Lhe SollclLor Ceneral flled before Lhe 8eglonal 1rlal CourL 8ranch 111 asay ClLy
Clvll Case no 7327 for deLermlnaLlon of [usL compensaLlon of lands exproprlaLed
under 8 8lg 340
23
ln lLs amended peLlLlon Lhe naLlonal CovernmenL named as
defendanLs Salem Marla del Carmen 8oxas de Lllzalde Concepclon Cabarrus vda
de SanLos Mlla de la 8ama and lnocenLes de la 8ama Lhe helrs of Lduardo Lesaca
and Carmen adllla
26
As prayed for Lhe Lrlal courL lssued a wrlL of possesslon on
AugusL 29 1990
27
1he followlng day AugusL 30 seven of Lhe elghL houses of Lhe
knechLs were demollshed and Lhe governmenL Look possesslon of Lhe porLlon of
land on whlch Lhe houses sLood
28

Meanwhlle Salem conveyed 361192 square meLers of Lhe sub[ecL properLy Lo
respondenL spouses Marlano and AnacoreLa nocom for whlch 1C1 no 130323 was
lssued ln Lhelr names Salem remalned Lhe owner of 249069 square meLers under
1C1 nos 130434 and 130433
Slnce Lhe knechLs refused Lo vacaLe Lhelr one remalnlng house Salem lnsLlLuLed
agalnsL Lhem Clvll Case no 83263 for unlawful deLalner before Lhe Munlclpal 1rlal
CourL 8ranch 46 asay ClLy As defense Lhe knechLs clalmed ownershlp of Lhe land
and bulldlng
29
1he Munlclpal 1rlal CourL however granLed Lhe complalnL and
ordered Lhe knechLs e[ecLmenL ursuanL Lo a wrlL of execuLlon Lhe lasL house of
Lhe knechLs was demollshed on Aprll 6 1991
30

1he proceedlngs ln Clvll Case no 7327 conLlnued As prayed for by Salem Lhe Lrlal
courL lssued an order on SepLember 13 1990 for Lhe release of 376363000 Lo
Salem by Lhe hlllpplne naLlonal 8ank (n8) as parLlal paymenL of [usL
compensaLlon
31
Cn !une 7 1991 Lhe Lrlal courL lssued anoLher order Lo Lhe n8
for Lhe release of 1300000000 as anoLher parLlal paymenL Lo Salem
32

Cn SepLember 9 1991 Lhe Lrlal courL lssued an order flxlng Lhe compensaLlon of all
Lhe lands soughL Lo be exproprlaLed by Lhe governmenL 1he value of Lhe sub[ecL
162

land was seL aL 2896100 per square meLer
33
1hls valuaLlon dld noL lnclude Lhe
lmprovemenLs
34

lL was afLer Lhese orders LhaL Lhe knechLs on SepLember 23 1991 flled a MoLlon
for lnLervenLlon and Lo lmplead AddlLlonal arLles ln Clvll Case no 7327 1hey
followed Lhls wlLh a MoLlon Lo lnhlblL 8espondenL !udge Sayo and Lo ConsolldaLe
Clvll Case no 7327 wlLh Clvll Case no 8423
Larller prlor Lo Lhe MoLlon Lo lnhlblL 8espondenL !udge Sayo and Lo ConsolldaLe
Clvll Case no 7327 wlLh Clvll Case no 8423 Lhe knechLs lnsLlLuLed Clvll Case no
8423 before Lhe 8eglonal 1rlal CourL 8ranch 117 asay ClLy for recovery of
ownershlp and possesslon of Lhe properLy Cn !anuary 2 1992 Lhe Lrlal courL
dlsmlssed Clvll Case no 8423 on Lhe ground of tes joJlcoto 1he knechLs challenged
Lhe order of dlsmlssal ln C8 no 103448 before Lhls CourL Cn lebruary 3 1992 we
dlsmlssed Lhe knechLs MoLlon for LxLenslon of 1lme Lo llle eLlLlon for cettlototl
for noncompllance wlLh Clrcular no 188
33
and for laLe flllng of Lhe eLlLlon
36

LnLry of [udgmenL was made on May 21 1992
37

ln Clvll Case no 7327 Lhe Lrlal courL lssued an order on Aprll 14 1992 denylng Lhe
knechLs MoLlon for lnLervenLlon and Lo lmplead AddlLlonal arLles 1he courL dld
noL rule on Lhe MoLlon Lo lnhlblL 8espondenL !udge Sayo and Lo ConsolldaLe Clvll
Case no 7327 wlLh Clvll Case no 8423 declarlng lL mooL and academlc
Cn Aprll 23 1992 as prayed for by Marlano nocom Lhe Lrlal courL ordered Lhe
release of 1132600000 as Lhlrd lnsLallmenL for hls 361192 square meLers of Lhe
sub[ecL land 1he knechLs quesLloned Lhe release of Lhls amounL before Lhe CourL of
Appeals ln CAC8 S no 27817 1he knechLs laLer amended Lhelr peLlLlon Lo llmlL
Lhelr cause of acLlon Lo a revlew of Lhe order of Aprll 14 1992 whlch denled Lhelr
MoLlon for lnLervenLlon and Lo lmplead AddlLlonal arLles
Cn March 3 1993 Lhe CourL of Appeals dlsmlssed Lhe peLlLlon ln CAC8 S no
27817 and denled Lhe knechLs lnLervenLlon ln Clvll Case no 7327 afLer flndlng LhaL
Lhe knechLs had no legal lnLeresL on Lhe sub[ecL properLy afLer Lhe dlsmlssal of Clvll
Case no 2961 Pence Lhe peLlLlon ln C8 no 109234
Cn !une 9 1992 whlle CAC8 S no 27817 was pendlng Lhe knechLs lnsLlLuLed
also before Lhe CourL of Appeals an orlglnal acLlon for annulmenL of [udgmenL of
Lhe Lrlal courLs 1hls case was dockeLed as CAC8 S no 28089 1hereln Lhe
knechLs challenged Lhe valldlLy of Lhe orders of Lhe land reglsLraLlon courLs ln Lhe
Lwo peLlLlons of Lhe Sangalangs and 8ableras for reglsLraLlon
38
Lhe reconveyance
case
39
and Lhe [usL compensaLlon
proceedlngs
40
1he knechLs quesLloned Lhe valldlLy of Lhe valldlLy of Lhe LlLles of Lhe
8ableras and Sangalangs and Lhose of Salem and Lhe nocoms and prayed for Lhe
lssuance of new LlLles ln Lhelr names 1hey also soughL Lo resLraln furLher releases
of paymenL of [usL compensaLlon Lo Salem and Lhe nocoms ln Clvll Case no 7327
1he CourL of Appeals dlsmlssed Lhe peLlLlon for lack of merlL on november 24
1992 Pence Lhe flllng of C8 no 108013 ln a 8esoluLlon daLed lebruary 1 1993
we denled Lhe peLlLlon flndlng no reverslble error commlLLed by Lhe CourL of
Appeals 1he knechLs moved for reconslderaLlon
endlng a resoluLlon of Lhls CourL on Lhe knechLs moLlon for reconslderaLlon
respondenLs nocom moved for consolldaLlon of Lhe Lwo
acLlons
41
We granLed Lhe moLlon
ln Lhelr peLlLlon ln C8 no 109234 Lhe knechLs alleged LhaL
l 1PL CCu81 Cl ALALS CCMMl11Lu A 8LvL8Sl8LL L88C8 Cl LAW ln PCLulnC
1PA1 ClvlL CASL nC 7327 lS nC1 An LMlnLn1 uCMAln 8CCLLulnC
ll 1PL CCu81 Cl ALALS CCMMl11Lu A 8LvL8Sl8LL L88C8 Cl LAW ln PCLulnC
1PA1 8LS !uulCA1A PAS SL1 ln 1C 8A8 1PL MC1lCn lC8 ln1L8vLn1lCn
lll 1PL CCu81 Cl ALALS CCMMl11Lu A 8LvL8Sl8LL L88C8 Cl LAW ln nC1
C8uL8lnC 8LSCnuLn1 !uuCL 1C 8uLL Cn 1PL MC1lCn lC8 lnPl8l1lCn
42

ln Lhelr MoLlon for 8econslderaLlon ln C8 no 108013 Lhe knechLs relLeraLe LhaL
l 1PL CCu81 Cl ALALS CCMMl11Lu A 8LvL8Sl8LL L88C8 Cl LAW ln PCLulnC
1PA1 1PL L1l1lCn lC8 AnnuLMLn1 Cl !uuCMLn1 lS 8A88Lu 8? k5 IuulcA1A
ll 1PL CCu81 Cl ALALS CCMMl11Lu A 8LvL8Sl8LL L88C8 Cl LAW ln
uPCLulnC 1PL uLlLnSL Cl k5 IuulcA1A LvLn AS l1S ALlCA1lCn lnvCLvLS
1PL SAC8lllCL Cl !uS1lCL 1C 1LCPnlCALl1?
43

We rule agalnsL Lhe peLlLloners
ln lLs declslon Lhe CourL of Appeals held LhaL Lhe knechLs had no rlghL Lo lnLervene
ln Clvll Case no 7327 for lack of any legal rlghL or lnLeresL ln Lhe properLy sub[ecL of
exproprlaLlon 1he appellaLe courL declared LhaL Clvll Case no 7327 was noL an
exproprlaLlon proceedlng under 8ule 67 of Lhe 8evlsed 8ules of CourL buL merely a
case for Lhe flxlng of [usL compensaLlon
44
1he knechLs rlghL Lo Lhe land had been
foreclosed afLer Lhey falled Lo redeem lL one year afLer Lhe sale aL publlc aucLlon
WhaLever rlghL remalned on Lhe properLy vanlshed afLer Clvll Case no 2961 Lhe
reconveyance case was dlsmlssed by Lhe Lrlal courL Slnce Lhe peLlLlons quesLlonlng
Lhe order of dlsmlssal were llkewlse dlsmlssed by Lhe CourL of Appeals and Lhls
CourL Lhe order of dlsmlssal became flnal and tes joJlcoto on Lhe lssue of
ownershlp of Lhe land
43

1he knechLs urge Lhls CourL ln Lhe lnLeresL of [usLlce Lo Lake a second look aL Lhelr
case 1hey clalm LhaL Lhey were deprlved of Lhelr properLy wlLhouL due process of
law 1hey allege LhaL Lhey dld noL recelve noLlce of Lhelr Lax dellnquency and LhaL
Lhe 8eglsLer of ueeds dld noL order Lhem Lo surrender Lhelr owners dupllcaLe for
annoLaLlon of Lhe Lax llen prlor Lo Lhe sale nelLher dld Lhey recelve noLlce of Lhe
aucLlon sale AfLer Lhe sale Lhe cerLlflcaLe of sale was noL annoLaLed ln Lhelr LlLle
nor ln Lhe LlLle wlLh Lhe 8eglsLer of ueeds ln shorL Lhey dld noL know of Lhe Lax
dellnquency and Lhe subsequenL proceedlngs unLll 1983 when Lhey recelved Lhe
orders of Lhe land reglsLraLlon courLs ln L8C Cases nos 2636 and 2632 flled by
Lhe 8ableras and Sangalangs
46
1hls ls Lhe reason why Lhey were unable Lo redeem
Lhe properLy
163

lL has been ruled LhaL Lhe noLlces and publlcaLlon as well as Lhe legal requlremenLs
for a Lax dellnquency sale are mandaLory
47
and Lhe fallure Lo comply LherewlLh
can lnvalldaLe Lhe sale
48
1he prescrlbed noLlces musL be senL Lo comply wlLh Lhe
requlremenLs of due process
49

1he clalm of lack of noLlce however ls a facLual quesLlon 1hls CourL ls noL a Lrler of
facLs Moreover Lhls facLual quesLlon had been ralsed repeaLedly ln all Lhe prevlous
cases flled by Lhe knechLs 1hese cases have lald Lo resL Lhe quesLlon of noLlce and
all Lhe oLher facLual lssues Lhey ralsed regardlng Lhe properLy kes joJlcoto had
already seL ln
kes joJlcoto ls a ground for dlsmlssal of an acLlon
30
lL ls a rule LhaL precludes
parLles from rellLlgaLlng lssues acLually llLlgaLed and deLermlned by a prlor and flnal
[udgmenL lL pervades every wellregulaLed sysLem of [urlsprudence and ls based
upon Lwo grounds embodled ln varlous maxlms of Lhe common law one publlc
pollcy and necesslLy LhaL Lhere should be a llmlL Lo llLlgaLlon
31
and anoLher Lhe
lndlvldual should noL be vexed Lwlce for Lhe same cause
32
When a rlghL of facL has
been [udlclally Lrled and deLermlned by a courL of compeLenL [urlsdlcLlon or an
opporLunlLy for such Lrlal has been glven Lhe [udgmenL of Lhe courL so long as lL
remalns unreversed should be concluslve upon Lhe parLles and Lhose ln prlvlLy wlLh
Lhem ln law or esLaLe
33
1o follow a conLrary docLrlne would sub[ecL Lhe publlc
peace and quleL Lo Lhe wlll and neglecL of lndlvlduals and prefer Lhe graLlflcaLlon of
Lhe llLlglous dlsposlLlon of Lhe parLles Lo Lhe preservaLlon of Lhe publlc LranqulllLy
34

kes joJlcoto applles when (1) Lhe former [udgmenL or order ls flnal (2) Lhe
[udgmenL or order ls one on Lhe merlLs (3) lL was rendered by a courL havlng
[urlsdlcLlon over Lhe sub[ecL maLLer and Lhe parLles (4) Lhere ls beLween Lhe flrsL
and second acLlons ldenLlLy of parLles of sub[ecL maLLer and of cause of
acLlon
33

eLlLloners clalm LhaL Clvll Case no 2961 ls noL tes joJlcoto on CAC8 S no
28089 1hey conLend LhaL Lhere was no [udgmenL on Lhe merlLs ln Clvll Case no
2961 le one rendered afLer a conslderaLlon of Lhe evldence or sLlpulaLlons
submlLLed by Lhe parLles aL Lhe Lrlal of Lhe case
36
1hey sLress LhaL Clvll Case no
2961 was dlsmlssed upon peLlLloners fallure Lo appear aL several hearlngs and
was based on lack of lnLeresL
We are noL lmpressed by peLlLloners conLenLlon Lack of lnLeresL ls analogous Lo
fallure Lo prosecuLe SecLlon 3 of 8ule 17 of Lhe 8evlsed 8ules of CourL provldes
Sec 3 lollote to ltosecote lf plalnLlff falls Lo appear aL Lhe Llme of Lhe Lrlal or Lo
prosecuLe hls acLlon for an unreasonable lengLh of Llme or Lo comply wlLh Lhese
rules or any order of Lhe courL Lhe acLlon may be dlsmlssed upon moLlon of Lhe
defendanL or upon Lhe courLs own moLlon 1hls dlsmlssal shall have Lhe effecL of an
ad[udlcaLlon upon Lhe merlLs unless oLherwlse provlded by courL
An acLlon may be dlsmlssed for fallure Lo prosecuLe ln any of Lhe followlng
lnsLances (1) lf Lhe plalnLlff falls Lo appear aL Lhe Llme of Lrlal or (2) lf he falls Lo
prosecuLe Lhe acLlon for an unreasonable lengLh of Llme or (3) lf he falls Lo comply
wlLh Lhe 8ules of CourL or any order of Lhe courL Cnce a case ls dlsmlssed for
fallure Lo prosecuLe Lhls has Lhe effecL of an ad[udlcaLlon on Lhe merlLs and ls
undersLood Lo be wlLh pre[udlce Lo Lhe flllng of anoLher acLlon unless oLherwlse
provlded ln Lhe order of dlsmlssal
37
ln oLher words unless Lhere be a quallflcaLlon
ln Lhe order of dlsmlssal LhaL lL ls wlLhouL pre[udlce Lhe dlsmlssal should be
regarded as an ad[udlcaLlon on Lhe merlLs and ls wlLh pre[udlce
38

rlor Lo Lhe dlsmlssal of Clvll Case no 2961 Lhe knechLs were presenLlng Lhelr
evldence 1hey however repeaLedly requesLed for posLponemenLs and falled Lo
appear aL Lhe lasL scheduled hearlng 1hls prompLed Salem Lo move for dlsmlssal of
Lhe case 1he courL ordered Lhus
C8uL8
lL appearlng LhaL counsel for Lhe plalnLlff has been duly noLlfled of Lodays hearlng
buL desplLe noLlce falled Lo appear and conslderlng LhaL Lhls case has been pendlng
for qulLe a conslderable lengLh of Llme on moLlon of counsel for Lhe defendanL
Salem lnvesLmenL [olned by ALLy !esus aredes for Lhe defendanL ClLy of asay for
apparenL lack of lnLeresL of plalnLlffs leL Lhelr complalnL be ulSMlSSLu
As prayed for leL Lhls case be reseL Lo SepLember 29 1988 aL 830 ln Lhe mornlng
for Lhe recepLlon of evldence of defendanLs Salem lnvesLmenL on lLs counLerclalm
SC C8uL8Lu
39

1he order of dlsmlssal was based on Lhe followlng facLors (1) pendency of Lhe
complalnL for a conslderable lengLh of Llme (2) fallure of counsel Lo appear aL Lhe
scheduled hearlng desplLe noLlce and (3) lack of lnLeresL of Lhe peLlLloners under
SecLlon 3 8ule 17 a dlsmlssal order whlch does noL provlde LhaL lL ls wlLhouL
pre[udlce Lo Lhe flllng of anoLher acLlon ls undersLood Lo be an ad[udlcaLlon on Lhe
merlLs Pence lL ls one wlLh pre[udlce Lo Lhe flllng of anoLher acLlon
1he order of dlsmlssal was quesLloned before Lhe CourL of Appeals and Lhls CourL
1he peLlLlons were dlsmlssed and Lhe order afflrmlng dlsmlssal became flnal ln
lebruary 1990 Slnce Lhe dlsmlssal order ls undersLood Lo be an ad[udlcaLlon on Lhe
merlLs Lhen all Lhe elemenLs of tes joJlcoto have been complled wlLh Clvll Case no
2961 ls Lherefore res [udlcaLa on Lhe lssue of ownershlp of Lhe land
1he knechLs conLend however LhaL Lhe facLs of Lhe case do noL call for Lhe
appllcaLlon of res [udlcaLa because Lhls amounLs Lo a sacrlflce of [usLlce Lo
LechnlcallLy We cannoL susLaln Lhls argumenL lL musL be noLed LhaL Lhe knechLs
were glven Lhe opporLunlLy Lo assall Lhe Lax sale and presenL Lhelr evldence on lLs
valldlLy ln Clvll Case no 2961 Lhe reconveyance case 1hrough Lhelr and Lhelr
counsels negllgence however Lhls case was dlsmlssed 1hey flled for
reconslderaLlon buL Lhelr moLlon was denled 1he CourL of Appeals upheld Lhls
dlsmlssal We afflrmed Lhe dlsmlssal noL on Lhe basls of a mere LechnlcallLy 1hls
CourL revlewed Lhe merlLs of peLlLloners case and found LhaL Lhe CourL of Appeals
commlLLed no reverslble error ln lLs quesLloned [udgmenL
60

AfLer years of llLlgaLlon and several cases ralslng essenLlally Lhe same lssues Lhe
knechLs cannoL now be allowed Lo avold Lhe effecLs of tes
164

joJlcoto
61
nelLher can Lhey be allowed Lo vary Lhe form of Lhelr acLlon or adopL a
dlfferenL meLhod of presenLlng Lhelr case Lo escape Lhe operaLlon of Lhe prlnclple
62
1o granL whaL Lhey seek wlll encourage endless llLlgaLlons and forumshopplng
Pence Lhe CourL of Appeals correcLly dlsmlssed CAC8 S no 28089
We flnd however LhaL Lhe CourL of Appeals erred ln declarlng LhaL Clvll Case no
7327 was noL an exproprlaLlon case lL was preclsely ln Lhe exerclse of Lhe sLaLes
power of emlnenL domaln under 8 8lg 340 LhaL exproprlaLlon proceedlngs were
lnsLlLuLed agalnsL Lhe owners of Lhe loLs soughL Lo be exproprlaLed 8 8lg 340 dld
noL by lLself lay down Lhe procedure for exproprlaLlon 1he law merely descrlbed
Lhe speclflc properLles exproprlaLed and declared LhaL [usL compensaLlon was Lo be
deLermlned by Lhe courL lL deslgnaLed Lhe Lhen MlnlsLry of ubllc Works and
Plghways as Lhe admlnlsLraLor ln Lhe prosecuLlon of Lhe pro[ecL 1hus ln Lhe
absence of a procedure ln Lhe law for exproprlaLlon reference musL be made Lo Lhe
provlslons on emlnenL domaln ln 8ule 67 of Lhe 8evlsed 8ules of CourL
SecLlon 1 of 8ule 67 of Lhe 8evlsed 8ules of CourL provldes
Sec 1 1be complolot 1he rlghL of emlnenL domaln shall be exerclsed by Lhe
flllng of a complalnL whlch shall sLaLe wlLh cerLalnLy Lhe rlghL and purpose of
condemnaLlon descrlbe Lhe real or personal properLy soughL Lo be condemned
and [oln as defendanLs all persons ownlng or clalmlng Lo own or occupylng any
parL Lhereof or lnLeresL Lhereln showlng so far as pracLlcable Lhe lnLeresL of each
defendanL separaLely lf Lhe LlLle Lo any properLy soughL Lo be condemned appears
Lo be ln Lhe 8epubllc of Lhe hlllpplnes alLhough occupled by prlvaLe lndlvlduals or
lf Lhe LlLle ls oLherwlse obscure or doubLful so LhaL Lhe plalnLlff cannoL wlLh
accuracy or cerLalnLy speclfy who are Lhe real owners avermenL Lo LhaL effecL may
be made ln Lhe complalnL
1he power of emlnenL domaln ls exerclsed by Lhe flllng of a complalnL whlch shall
[oln as defendanLs all persons ownlng or clalmlng Lo own or occupylng any parL of
Lhe exproprlaLed land or lnLeresL Lhereln
63
lf a known owner ls noL [olned as
defendanL he ls enLlLled Lo lnLervene ln Lhe proceedlng or lLs he ls [olned buL noL
served wlLh process and Lhe proceedlng ls already closed before he came Lo know
of Lhe condemnaLlon he may malnLaln an lndependenL sulL for damages
64

1he defendanLs ln an exproprlaLlon case are noL llmlLed Lo Lhe owners of Lhe
properLy condemned 1hey lnclude all oLher persons ownlng occupylng or clalmlng
Lo own Lhe properLy When a parcel of land ls Laken by emlnenL domaln Lhe owner
of Lhe fee ls noL necessarlly Lhe only person who ls enLlLled Lo compensaLlon
63
ln
Lhe Amerlcan [urlsdlcLlon Lhe Lerm owner when employed ln sLaLuLes relaLlng Lo
emlnenL domaln Lo deslgnaLe Lhe persons who are Lo be made parLles Lo Lhe
proceedlng refers as ls Lhe rule ln respecL of Lhose enLlLled Lo compensaLlon Lo all
Lhose who have lawful lnLeresL ln Lhe properLy Lo be condemned
66
lncludlng a
morLgagee
67
a lessee
68
and a vendee ln possesslon under an execuLory conLracL
69

Lvery person havlng an esLaLe or lnLeresL aL law or ln equlLy ln Lhe land Laken ls
enLlLled Lo share ln Lhe award
70
lf a person clalmlng an lnLeresL ln Lhe land soughL
Lo be condemned ls noL made a parLy he ls glven Lhe rlghL Lo lnLervene and lay
clalm Lo Lhe compensaLlon
71

1he knechLs lnslsL LhaL alLhough Lhey were no longer Lhe reglsLered owners of Lhe
properLy aL Lhe Llme Clvll Case no 7327 was flled Lhey sLlll occupled Lhe properLy
and Lherefore should have been [olned as defendanLs ln Lhe exproprlaLlon
proceedlngs When Lhe case was flled all Lhelr elghL (8) houses were sLlll sLandlng
seven (7) houses were demollshed on AugusL 29 1990 and Lhe lasL one on Aprll 6
1991 1hey clalm LhaL as occupanLs of Lhe land aL Lhe Llme of exproprlaLlon Lhey
are enLlLled Lo a share ln Lhe [usL compensaLlon
Clvll Case no 7327 Lhe exproprlaLlon case was flled on May 13 1990 lour monLhs
earller ln !anuary 1990 Clvll Case no 2961 for reconveyance was dlsmlssed wlLh
flnallLy by Lhls CourL and [udgmenL was enLered ln lebruary 1990 1he knechLs losL
whaLever rlghL or colorable LlLle Lhey had Lo Lhe properLy afLer we afflrmed Lhe
order of Lhe Lrlal courL dlsmlsslng Lhe conveyance case 1he facL LhaL Lhe knechLs
remalned ln physlcal possesslon cannoL glve Lhem anoLher cause of acLlon and
resurrecL an already seLLled case 1he knechLs possesslon of Lhe land and bulldlngs
was based on Lhelr clalm of ownershlp
72
noL on any [urldlcal LlLle such as a lessee
morLgagee or vendee Slnce Lhe lssue of ownershlp was puL Lo resL ln Clvll Case no
2961 lL follows LhaL Lhelr physlcal possesslon of Lhe properLy afLer Lhe flnallLy of
sald case was berefL of any legallLy and merely subslsLed aL Lhe Lolerance of Lhe
reglsLered owners
73
1hls Lolerance ended when Salem flled Clvll Case no 83263
for unlawful deLalner agalnsL Lhe knechLs As prayed for Lhe Lrlal courL ordered
Lhelr e[ecLmenL and Lhe demollLlon of Lhelr remalnlng house
lndeed Lhe knechLs had no legal lnLeresL ln Lhe properLy by Lhe Llme Lhe
exproprlaLlon proceedlngs were lnsLlLuLed 1hey had no rlghL Lo lnLervene and Lhe
Lrlal courL dld noL err ln denylng Lhelr MoLlon for lnLervenLlon and Lo lmplead
AddlLlonal arLles 1helr lnLervenLlon havlng been denled Lhe knechLs had no
personallLy Lo move for Lhe lnhlblLlon of respondenL !udge Sayo from Lhe case 1he
CourL of Appeals Lherefore dld noL err ln dlsmlsslng CAC8 S no 27817
ln vlLW WPL8LCl Lhe eLlLlon ln C8 no 109234 ls dlsmlssed and Lhe MoLlon for
8econslderaLlon ln C8 no 108013 ls denled 1he declslons of Lhe CourL of Appeals
ln CAC8 S no 27817 and CAC8 S no 28089 are afflrmed
SC C8uL8Lu

Gk No 12S218 Ianuary 23 1998
IILS1kLAM IN1LkNA1ICNAL INCCk9CkA1LD VS CA

l8AnClSCC I
ln resolvlng Lhe lnsLanL peLlLlons Lhe CourL ls Lasked Lo sLrlke a balance beLween
Lhe conLendlng lnLeresLs when Lhe sLaLe exerclses lLs power of emlnenL domaln Cn
one slde we have Lhe owners of Lhe properLy Lo be exproprlaLed who musL be duly
163

compensaLed for Lhe loss of Lhelr properLy whlle on Lhe oLher ls Lhe SLaLe whlch
musL Lake Lhe properLy for publlc use
eLlLloner lllsLream lnLernaLlonal lnc ls Lhe reglsLered owner of Lhe properLles
sub[ecL of Lhls dlspuLe conslsLlng of ad[acenL parcels of land slLuaLed ln AnLonlo
8lvera SLreeL 1ondo ll Manlla wlLh a LoLal area of 337110 square meLers and
covered by 1C1 nos 203937 203936 169198 169199 169200 and 169202 of Lhe
8eglsLer of ueeds of Manlla
Cn !anuary 7 1993 peLlLloner flled an e[ecLmenL sulL before Lhe MeLropollLan 1rlal
CourL of Manlla (8ranch 13) dockeLed as Clvll Case no 140817Cv agalnsL Lhe
occupanLs of Lhe abovemenLloned parcels of land (hereln prlvaLe respondenLs ln C
8 no 128077) on Lhe grounds of LermlnaLlon of Lhe lease conLracL and non
paymenL of renLals !udgmenL was rendered by Lhe M1C on SepLember 14 1993
orderlng prlvaLe respondenLs Lo vacaLe Lhe premlses and pay back renLals Lo
peLlLloner
1

noL saLlsfled prlvaLe respondenLs appealed Lhe declslon Lo Lhe 8eglonal 1rlal CourL
of Manlla 8ranch 4 (Clvll Case no 9368130) whlch ln Lurn afflrmed Lhe declslon of
Lhe M1C ln lLs declslon daLed lebruary 22 1994 SLlll noL conLenL prlvaLe
respondenLs proceeded Lo Lhe CourL of Appeals vla a peLlLlon for revlew (CAC8 S
no 33714) 1he resulL however remalned Lhe same as Lhe CA afflrmed Lhe declslon
of Lhe 81C ln lLs declslon daLed AugusL 23 1994
2
1hereafLer no furLher acLlon was
Laken by Lhe prlvaLe respondenLs as a resulL of whlch Lhe declslon ln Lhe e[ecLmenL
sulL became flnal and execuLory
Powever lL appeared LhaL durlng Lhe pendency of Lhe e[ecLmenL proceedlngs
prlvaLe respondenLs flled on May 23 1993 a complalnL for AnnulmenL of ueed of
Lxchange agalnsL peLlLloner lllsLream whlch was dockeLed ln Clvll Case no 93
66039 before Lhe 81C of Manlla 8ranch 43 lL was aL Lhls sLage LhaL respondenL ClLy
of Manlla came lnLo Lhe plcLure when Lhe clLy governmenL approved Crdlnance no
7813
3
on november 3 1993 auLhorlzlng Mayor Alfredo S Llm Lo lnlLlaLe Lhe
acqulslLlon by negoLlaLlon exproprlaLlon purchase or oLher legal means cerLaln
parcels of land reglsLered under 1C1 nos 169193 169198 169190 169200
169202 and 169192 of Lhe 8eglsLry of ueeds of Manlla whlch formed parL of Lhe
properLles of peLlLloner Lhen occupled by prlvaLe respondenLs SubsequenLly Lhe
ClLy of Manlla approved Crdlnance no 7833
4
declarlng Lhe exproprlaLlon of cerLaln
parcels of land slLuaLed along AnLonlo 8lvera and lernando Ma Cuerrero sLreeLs ln
1ondo Manlla whlch were owned by Mr Lnrlque Cul[ano CuLlerrez peLlLloners
predecessorlnlnLeresL 1he sald properLles were Lo be sold and dlsLrlbuLed Lo
quallfled LenanLs of Lhe area pursuanL Lo Lhe Land use uevelopmenL rogram of Lhe
ClLy of Manlla
Cn May 23 1994 respondenL ClLy of Manlla flled a complalnL for emlnenL domaln
(Clvll Case no 9470360) before Lhe 81C of Manlla 8ranch 42
3
seeklng Lo
exproprlaLe Lhe aforeclLed parcels of land owned by peLlLloner lllsLream whlch are
slLuaLed aL AnLonlo 8lvera SLreeL 1ondo ll Manlla
6

ursuanL Lo Lhe complalnL flled by respondenL ClLy of Manlla Lhe Lrlal courL lssued a
WrlL of ossesslon
7
ln favor of Lhe former whlch ordered Lhe Lransfer of possesslon
over Lhe dlspuLed premlses Lo Lhe ClLy of Manlla
AL Lhls [uncLure peLlLloner lllsLream flled a moLlon Lo dlsmlss Lhe complalnL for
emlnenL domaln as well as a moLlon Lo quash Lhe wrlL of possesslon 1he moLlon Lo
dlsmlss was premlsed on Lhe followlng grounds no valld cause of acLlon Lhe
peLlLlon does noL saLlsfy Lhe requlremenLs of publlc use and a mere clandesLlne
maneuver Lo clrcumvenL Lhe wrlL of execuLlon lssued by Lhe 81C of Manlla 8ranch
4 ln Lhe e[ecLmenL sulL vlolaLlon of Lhe consLlLuLlonal guaranLee agalnsL non
lmpalrmenL of obllgaLlons and conLracLs prlce offered was Loo low hence vlolaLlve
of Lhe [usL compensaLlon provlslon of Lhe consLlLuLlon and Lhe sald amounL ls
wlLhouL Lhe cerLlflcaLlon of Lhe ClLy 1reasurer for avallablllLy of funds
8
WlLh respecL
Lo Lhe moLlon Lo quash Lhe wrlL of possesslon peLlLloner ralsed Lhe followlng
ob[ecLlons fallure Lo comply wlLh SecLlon 2 of 8ule 67 of Lhe 8ules of CourL
Crdlnance no 7813 ls a vold enacLmenL for lL was approved wlLhouL a publlc
hearlng and vlolaLlve of Lhe consLlLuLlonal guaranLee agalnsL lmpalrmenL of
obllgaLlons and conLracLs Lhe prlce ls Loo low and unconsclonable vlolaLlng Lhe [usL
compensaLlon provlslon of Lhe consLlLuLlon and Lhe sald wrlL ls LalnLed wlLh
lnflrmlLy conslderlng Lhe absence of a cerLlflcaLlon from Lhe ClLy of Manlla LhaL
Lhere ls an lmmedlaLely avallable fund for Lhe sub[ecL exproprlaLlon
9

8espondenL ClLy of Manlla flled lLs opposlLlon
10
Lo peLlLloner lllsLreams Lwo
moLlons and Lo whlch peLlLloner accordlngly flled a reply
11
Cn SepLember 30
1994 Lhe 81C of Manlla 8ranch 42 lssued an order denylng peLlLloner lllsLreams
moLlon Lo dlsmlss and Lhe moLlon Lo quash Lhe WrlL of ossesslon and declared as
follows
ln llnL Lhe defendanLs moLlon Lo dlsmlss and moLlon Lo quash wrlL of possesslon
are boLh wlLhouL merlL and are hereby uLnlLu and Lhe sub[ecL parcels of lands
covered by 1C1 nos 203937 203936 169198 169199 169200 and 169202 (of Lhe
8eglsLer of ueeds of Manlla) locaLed aL AnLonlo 8lvera SLreeL 1ondo ll Manlla wlLh
a LoLal area of 337110 square meLers are hereby declared CCnuLMnLu ln favor of
Lhe ClLy of Manlla for dlsLrlbuLlon and resale Lo all poor and landless quallfled
resldenLs/LenanLs ln Lhe sald area under Lhe clLys landforLhe landless program
upon paymenL of [usL compensaLlon whlch ls yeL Lo be deLermlned by Lhls CourL
12

eLlLloner flled a moLlon for reconslderaLlon
13
as well as a supplemenLal moLlon for
reconslderaLlon
14
seeklng Lhe reversal of Lhe abovequoLed order buL Lhe same
were denled
13
SLlll peLlLloner flled a subsequenL moLlon Lo be allowed Lo flle a
second moLlon for reconslderaLlon buL lL was also denled
Aggrleved peLlLloner flled on March 31 1996 a eLlLlon for cettlototl wlLh Lhe
CourL of Appeals (CAC8 S no 36904) seeklng Lo seL aslde Lhe SepLember 30
1994 order of Lhe 81C of Manlla 8ranch 42 Powever on March 18 1996
respondenL CA lssued a resoluLlon dlsmlsslng Lhe peLlLlon ln Lhls wlse
166

lL appearlng LhaL Lhe aboveenLlLled peLlLlon ls lnsufflclenL ln form and subsLance
lL does noL comply wlLh SecLlon 2(a) 8ule 6 of Lhe 8evlsed lnLernal 8ules of Lhe
CourL of Appeals whlch requlres LhaL Lhe peLlLlon shall be accompanled by
oLher perLlnenL documenLs and papers aslde from Lhe facL LhaL coples of Lhe
pleadlngs aLLached Lo Lhe peLlLlon are blurred and unreadable Lhls CourL
resolved Lo summarlly ulSMlSS Lhe same (peLlLlon)
16

eLlLloner flled a moLlon for reconslderaLlon and aLLached clearer coples of Lhe
perLlnenL documenLs and papers pursuanL Lo SecLlon 2(a) 8ule 6 of Lhe 8evlsed
lnLernal 8ules of Lhe CourL of Appeals 8uL on May 20 1996 respondenL CA lssued a
resoluLlon denylng Lhe moLlon as peLlLloner falled Lo submlL clearer and readable
coples of Lhe pleadlngs
17
1hls prompLed peLlLloner Lo proceed Lo Lhls CourL glvlng
rlse Lo Lhe lnsLanL peLlLlon for revlew on cettlototl under 8ule 43 and dockeLed
hereln as C8 no 123218 assalllng Lhe dlsmlssal of lLs peLlLlon by Lhe CA ln lLs
resoluLlon daLed March 18 1996 as well as LhaL of lLs moLlon for reconslderaLlon ln
Lhe resoluLlon daLed May 20 1996
Meanwhlle owlng Lo Lhe flnallLy of Lhe declslon ln Lhe e[ecLmenL sulL (Clvll Case no
140817Cv) Lhe M1C of Manlla 8ranch 13 upon moLlon of peLlLloner lllsLream
lssued a WrlL of LxecuLlon as well as a noLlce Lo vacaLe Lhe dlspuLed premlses
18

rlvaLe respondenLs flled a MoLlon Lo 8ecall/Cuash Lhe WrlL of LxecuLlon and
noLlce Lo vacaLe
19
alleglng Lhe exlsLence of a supervenlng evenL ln LhaL Lhe
properLles sub[ecL of Lhe dlspuLe have already been ordered condemned ln an
exproprlaLlon proceedlng ln favor of Lhe ClLy of Manlla for Lhe beneflL of Lhe
quallfled occupanLs Lhereof Lhus execuLlon shall be sLayed eLlLloner opposed Lhe
moLlon relLeraLlng LhaL Lhe declslon ln Lhe e[ecLmenL case ls already flnal and
execuLory and dlspuLed prlvaLe respondenLs rlghL Lo lnLerpose Lhe exproprlaLlon
proceedlngs as a defense because Lhe laLLer were noL parLles Lo Lhe same
lor lLs parL Lhe ClLy of Manlla flled on March 13 1996 a moLlon for lnLervenLlon
wlLh prayer Lo sLay/quash Lhe wrlL of execuLlon on Lhe ground LhaL lL ls Lhe presenL
possessor of Lhe properLy sub[ecL of execuLlon
ln lLs order daLed March 14 1996 Lhe M1C of Manlla 8ranch 14 denled prlvaLe
respondenLs moLlon as lL found Lhe allegaLlons Lhereln berefL of merlL and upheld
Lhe lssuance of Lhe WrlL of LxecuLlon and noLlce Lo vacaLe ln peLlLloners favor
20

SubsequenLly Lhe Lrlal courL also denled Lhe moLlon flled by Lhe ClLy of Manlla
Cn Aprll 22 1996 Lhe Lrlal courL lssued an order commandlng Lhe demollLlon of Lhe
sLrucLure erecLed on Lhe dlspuLed premlses 1o averL Lhe demollLlon prlvaLe
respondenLs flled before Lhe 81C of Manlla 8ranch 14 a eLlLlon for cettlototl and
rohlblLlon wlLh prayer for Lhe lssuance of a Lemporary resLralnlng order and
prellmlnary ln[uncLlon (dockeLed as Clvll Case no 9678098) Cn Aprll 29 1996 Lhe
81C of Manlla 8ranch 33 lssued a 18C en[olnlng Lhe execuLlon of Lhe wrlL lssued ln
Clvll Case no 140817Cv by Lhe M1C of Manlla 8ranch 14
21
SubsequenLly Lhe 81C
lssued a wrlL of prellmlnary ln[uncLlon on May 14 1996
22

Cn May 13 1996 Lhe ClLy of Manlla flled lLs eLlLlon for cettlototl and rohlblLlon
wlLh prayer for Lhe lssuance of a Lemporary resLralnlng order and prellmlnary
ln[uncLlon whlch was raffled Lo 8ranch 23 of Lhe 81C of Manlla (dockeLed as Clvll
Case no 9678382) seeklng Lhe reversal of Lhe orders lssued by Lhe M1C of Manlla
8ranch 14 whlch denled lLs moLlon Lo lnLervene and quash Lhe wrlL of execuLlon ln
Clvll Case no 140817Cv
1hereafLer upon moLlon flled by Lhe ClLy of Manlla an order was lssued by Lhe 81C
of Manlla 8ranch 10 orderlng Lhe consolldaLlon of Clvll Case no 9678382 wlLh
Clvll Case no 9678098 pendlng before 8ranch 14 of Lhe 81C of Manlla
23
Cn May
21 1996 Lhe 81C of Manlla 8ranch 14 lssued an ln[uncLlon ln Clvll Case no 96
78098 en[olnlng Lhe lmplemenLaLlon of Lhe wrlL of execuLlon unLll furLher orders
from Lhe courL
24
eLlLloner lllsLream flled a MoLlon Lo ulssolve Lhe WrlL of
rellmlnary ln[uncLlon and Lo be allowed Lo posL a counLerbond buL Lhe Lrlal courL
denled Lhe same lllsLream Lhen flled a moLlon for reconslderaLlon from Lhe order
of denlal buL pendlng resoluLlon of Lhls moLlon lL flled a moLlon for volunLary
lnhlblLlon of Lhe presldlng [udge of Lhe 81C of Manlla 8ranch 14 1he moLlon for
lnhlblLlon was granLed
23
and as a resulL Lhe consolldaLed cases (Clvll Case no 96
78382 and 9678098) were reraffled Lo Lhe 81C of Manlla 8ranch 33
uurlng Lhe proceedlngs before Lhe 81C of Manlla 8ranch 33 peLlLloner lllsLream
moved for Lhe dlsmlssal of Lhe consolldaLed cases (Clvll Case no 9678382 and no
9678098) for vlolaLlon of Supreme CourL Clrcular no 0494 (forum shopplng)
because Lhe same parLles causes of acLlon and sub[ecL maLLer lnvolved Lhereln
have already been dlsposed of ln Lhe declslon ln Lhe e[ecLmenL case (Clvll Case no
140817) whlch has already became flnal and execuLory prlor Lo Lhe flllng of Lhese
consolldaLed cases
Cn uecember 9 1996 an order was lssued by Lhe 81C of Manlla 8ranch 33
orderlng Lhe dlsmlssal of Clvll Case nos 9678382 and 9678098 for vlolaLlon of
Supreme CourL Clrcular no 0494
26
lmmedlaLely LhereafLer peLlLloner lllsLream
flled an xpotte MoLlon for lssuance of an Allas WrlL of uemollLlon and L[ecLmenL
and a supplemenLal moLlon Lo Lhe same daLed !anuary 10 and 13 1997
respecLlvely
27
before Lhe M1C of Manlla 8ranch 13 whlch promulgaLed Lhe
declslon ln Lhe e[ecLmenL sulL (Clvll Case no 140817Cv) Cn !anuary 23 1997 Lhe
courL granLed Lhe moLlon and lssued Lhe correspondlng wrlL of demollLlon
As a consequence of Lhe dlsmlssal of Lhe consolldaLed cases hereln prlvaLe
respondenLs flled a eLlLlon for cettlototl and rohlblLlon wlLh prayer for Lhe
lssuance of a Lemporary resLralnlng order and prellmlnary ln[uncLlon before Lhe
CourL of Appeals (dockeLed as CAC8 S no 43101)
28
assalllng Lhe above
menLloned order of dlsmlssal by Lhe 81C of Manlla 8ranch 33 as havlng been
lssued wlLh grave abuse of dlscreLlon LanLamounL Lo lack or ln excess of [urlsdlcLlon
ln a resoluLlon daLed !anuary 28 1997 Lhe CourL of Appeals granLed hereln prlvaLe
respondenLs prayer for Lhe lssuance of a Lemporary resLralnlng order and dlrecLed
167

Lhe M1C of Manlla 8ranch 13 Lo deslsL from lmplemenLlng Lhe order of demollLlon
daLed !anuary 23 1997 unless oLherwlse dlrecLed
29

AL Lhe concluslon of Lhe hearlng for Lhe lssuance of a wrlL of prellmlnary ln[uncLlon
Lhe CourL of Appeals ln lLs resoluLlon daLed lebruary 18 1997 found merlL ln
prlvaLe respondenLs allegaLlons ln supporL of Lhelr appllcaLlon of Lhe lssuance of
Lhe wrlL and granLed Lhe same Lo wlL
llndlng LhaL Lhe enforcemenL or lmplemenLaLlon of Lhe wrlL of execuLlon and noLlce
Lo vacaLe lssued ln Clvll Case no 140817Cv Lhe e[ecLmenL case before respondenL
!udge !lro durlng Lhe pendency of Lhe lnsLanL peLlLlon would probably be ln
vlolaLlon of peLlLloners rlghL and would Lend Lo render Lhe [udgmenL ln Lhe lnsLanL
case lneffecLual and probably work ln[usLlce Lo Lhe peLlLloners Lhe appllcaLlon for
Lhe lssuance of a wrlL of prellmlnary ln[uncLlon ls hereby C8An1Lu
WPL8LlC8L upon Lhe flllng of a bond ln Lhe amounL of 13000000 leL a wrlL of
prellmlnary ln[uncLlon be lssued en[olnlng respondenLs Lhelr employees agenLs
represenLaLlves and anyone acLlng ln Lhelr behalf from enforclng or execuLlng Lhe
wrlL of execuLlon and noLlce Lo vacaLe lssued ln Clvll Case no 140817Cv of Lhe
courL of respondenL !udge !lro or oLherwlse dlsLurblng Lhe sLaLus quo unLll furLher
orders of Lhls CourL
30

ln Lurn peLlLloner lllsLream ls now before Lhls CourL vla a eLlLlon for cettlototl
under 8ule 63 (C8 no 128077) seeklng Lo nulllfy Lhe 8esoluLlons of Lhe CourL of
Appeals daLed !anuary 28 1997 and lebruary 18 1997 whlch granLed hereln
prlvaLe respondenLs prayer for a 18C and WrlL of rellmlnary ln[uncLlon Lhe same
belng null and vold for havlng been lssued ln grave abuse of dlscreLlon
upon moLlon flled by peLlLloner lllsLream ln order Lo avold any confllcLlng
declslons on Lhe legal lssues ralsed ln Lhe peLlLlons Lhe CourL ordered LhaL Lhe laLer
peLlLlon C8 no 128077 be consolldaLed wlLh C8 no 128077 ln Lhe resoluLlon of
March 3 1997
31

1he lssue ralsed ln C8 no 123218 ls purely a procedural and Lechnlcal maLLer
eLlLloner Lakes excepLlon Lo Lhe resoluLlons of respondenL CA daLed March 18
1996 and May 20 1996 whlch ordered Lhe dlsmlssal of lLs eLlLlon for cettlototl for
noncompllance wlLh Sec 2(a) of 8ule 6 of Lhe 8evlsed lnLernal 8ules of Lhe CourL of
Appeals by falllng Lo aLLach Lo lLs peLlLlon oLher perLlnenL documenLs and papers
and for aLLachlng coples of pleadlngs whlch are blurred and unreadable eLlLloner
argues LhaL respondenL appellaLe courL serlously erred ln glvlng more premlum Lo
form raLher Lhan subsLance
We agree wlLh Lhe peLlLloner A sLrlcL adherence Lo Lhe Lechnlcal and procedural
rules ln Lhls case would defeaL raLher Lhan meeL Lhe ends of [usLlce as lL would
resulL ln Lhe vlolaLlon of Lhe subsLanLlal rlghLs of peLlLloner AL sLake ln Lhe appeal
flled by peLlLloner before Lhe CA ls Lhe exerclse of Lhelr properLy rlghLs over Lhe
dlspuLed premlses whlch have been exproprlaLed and have ln facL been ordered
condemned ln favor of Lhe ClLy of Manlla ln effecL Lhe dlsmlssal of Lhelr appeal ln
Lhe exproprlaLlon proceedlngs based on Lhe aforemenLloned grounds ls LanLamounL
Lo a deprlvaLlon of properLy wlLhouL due process of law as lL would auLomaLlcally
valldaLe Lhe exproprlaLlon proceedlngs whlch Lhe peLlLloner ls sLlll dlspuLlng lL musL
be emphaslzed LhaL where subsLanLlal rlghLs are affecLed as ln Lhls case Lhe
sLrlngenL appllcaLlon of procedural rules may be relaxed lf only Lo meeL Lhe ends of
subsLanLlal [usLlce
ln Lhese lnsLances respondenL CA can exerclse lLs dlscreLlon Lo suspend lLs lnLernal
rules and allow Lhe parLles Lo presenL and llLlgaLe Lhelr causes of acLlon so LhaL Lhe
CourL can make an acLual and compleLe dlsposlLlon of Lhe lssues presenLed ln Lhe
case 8aLher Lhan slmply dlsmlsslng Lhe peLlLlon summarlly for noncompllance wlLh
respondenL courLs lnLernal rules respondenL CA should have lnsLead enLerLalned
peLlLloner lllsLreams peLlLlon for revlew on cettlototl and ordered peLlLloner Lo
submlL Lhe correspondlng pleadlngs whlch lL deems relevanL and replace Lhose
whlch are unreadable 1hls lenlency could noL have caused any pre[udlce Lo Lhe
rlghLs of Lhe oLher parLles
WlLh regard Lo Lhe oLher peLlLlon C8 no 128077 peLlLloner lllsLream ob[ecLs Lo
Lhe lssuance by respondenL CA of Lhe resLralnlng order and Lhe prellmlnary
ln[uncLlon en[olnlng Lhe execuLlon of Lhe wrlL of demollLlon lssued ln Lhe e[ecLmenL
sulL (Clvll Case no 140817Cv) as an lncldenL Lo prlvaLe respondenLs pendlng
peLlLlon assalllng Lhe dlsmlssal by Lhe 81C of Manlla 8ranch 33 of Lhe consolldaLed
peLlLlons for cettlototl flled by prlvaLe respondenLs and Lhe ClLy of Manlla on Lhe
ground of forum shopplng
1he proprleLy of Lhe lssuance of Lhe resLralnlng order and Lhe wrlL of prellmlnary
ln[uncLlon ls buL a mere lncldenL Lo Lhe acLual conLroversy whlch ls rooLed ln Lhe
asserLlon of Lhe confllcLlng rlghLs of Lhe parLles ln Lhls case over Lhe dlspuLed
premlses ln order Lo deLermlne wheLher prlvaLe respondenLs are enLlLled Lo Lhe
ln[uncLlve rellefs granLed by respondenL CA we deemed lL proper Lo exLracL Lhe
source of dlscord
eLlLloner lllsLream anchors lLs clalm by vlrLue of lLs ownershlp over Lhe properLles
and Lhe exlsLence of a flnal and execuLory [udgmenL agalnsL prlvaLe respondenLs
orderlng Lhe laLLers e[ecLmenL from Lhe premlses (Clvll Case no 140817Cv)
rlvaLe respondenLs clalm on Lhe oLher hand hlnges on an alleged supervenlng
evenL whlch has rendered Lhe enforcemenL of peLlLloners rlghLs mooL LhaL ls Lhe
exproprlaLlon proceedlngs (Clvll Case no 9470360) underLaken by Lhe ClLy of
Manlla over Lhe dlspuLed premlses for Lhe beneflL of hereln prlvaLe respondenLs
lor lLs parL Lhe ClLy of Manlla ls merely exerclslng lLs power of emlnenL domaln
wlLhln lLs [urlsdlcLlon by exproprlaLlng peLlLloners properLles for publlc use
1here ls no dlspuLe as Lo Lhe exlsLence of a flnal and execuLory [udgmenL ln favor of
peLlLloner lllsLream orderlng Lhe e[ecLmenL of prlvaLe respondenLs from Lhe
properLles sub[ecL of Lhls dlspuLe 1he [udgmenL ln Lhe e[ecLmenL sulL became flnal
and execuLory afLer prlvaLe respondenLs falled Lo lnLerpose any appeal from Lhe
adverse declslon of Lhe CourL of Appeals daLed AugusL 23 1994 ln CAC8 S no
168

33714 1hus peLlLloner has every rlghL Lo asserL Lhe execuLlon of Lhls declslon as lL
had already become flnal and execuLory
Powever lL musL also be conceded LhaL Lhe ClLy of Manlla has an undenlable rlghL
Lo exerclse lLs power of emlnenL domaln wlLhln lLs [urlsdlcLlon 1he rlghL Lo
exproprlaLe prlvaLe properLy for publlc use ls expressly granLed Lo lL under SecLlon
19 of Lhe 1991 Local CovernmenL Code Lo wlL
Sec 19 LmlnenL uomaln A locol qovetomeot oolt moy tbtooqb lts cblef
execotlve ooJ octloq potsooot to oo otJloooce exetclse tbe powet of emloeot
Jomolo fot pobllc ose ot potpose ot welfote fot tbe beoeflt of tbe poot ooJ tbe
looJless opoo poymeot of jost compeosotloo potsooot to tbe ptovlsloos of tbe
coostltotloo ooJ pettloeot lows ltovlJeJ bowevet 1haL Lhe power of emlnenL
domaln may noL be exerclsed unless a valld and deflnlLe offer has been prevlously
made Lo Lhe owner and such offer was noL accepLed rovlded furLher 1haL Lhe
local governmenL unlL may lmmedlaLely Lake possesslon of Lhe properLy upon Lhe
flllng of Lhe exproprlaLlon proceedlngs and upon maklng a deposlL wlLh Lhe proper
courL of aL leasL flfLeen (13) of Lhe falr markeL value of Lhe properLy based on Lhe
currenL Lax declaraLlon of Lhe properLy Lo be exproprlaLed ltovlJeJ floolly 1haL
Lhe amounL Lo be pald for Lhe exproprlaLed properLy shall be deLermlned by Lhe
proper courL based on Lhe falr markeL value aL Lhe Llme of Lhe Laklng of Lhe
properLy (Lmphasls supplled)
More speclflcally Lhe ClLy of Manlla has Lhe power Lo exproprlaLe prlvaLe properLy
ln Lhe pursulL of lLs urban land reform and houslng program as expllclLly lald ouL ln
Lhe 8evlsed CharLer of Lhe ClLy of Manlla (8A no 409) as follows
Ceneral powers 1he clLy may have a common seal and alLer Lhe same aL
pleasure ooJ moy toke potcbose tecelve bolJ leose coovey ooJ Jlspose of teol
ooJ petsoool ptopetty fot tbe qeoetol lotetest of tbe clty cooJemo ptlvote ptopetty
fot pobllc ose conLracL and be conLracLed wlLh sue and be sued and prosecuLe and
defend Lo flnal [udgmenL and execuLlon and exerclse all Lhe powers herelnafLer
conferred (8A 409 Sec 3 Lmphasls supplled)
xxx xxx xxx
Sec 100 1he ClLy of Manlla ls auLhorlzed to ocpolte ptlvote looJs lo tbe clty ooJ to
sobJlvlJe tbe some loto bome lots fot sole oo eosy tetms to clty teslJeots glvlng
flrsL prlorlLy Lo Lhe booo flJe LenanLs or occupanLs of sald lands and second prlorlLy
Lo laborers and lowsalarled employees lor Lhe purpose of Lhls secLlon Lhe clLy
may ralse Lhe necessary funds by approprlaLlons of general funds by securlng loans
or by lssulng bonds and lf necessary may acqulre Lhe lands Lhrough exproprlaLlon
proceedlngs ln accordance wlLh law wlLh Lhe approval of Lhe resldenL
(Lmphasls supplled)
ln facL Lhe ClLy of Manllas rlghL Lo exerclse Lhese prerogaLlves noLwlLhsLandlng Lhe
exlsLence of a flnal and execuLory [udgmenL over Lhe properLy Lo be exproprlaLed
has been upheld by Lhls CourL ln Lhe case of lblllpploe colombloo Assoclotloo vs
lools C8 no 106328 uecember 21 1993
32
8elylng on Lhe aforemenLloned
provlslons of Lhe 8evlsed CharLer of Lhe ClLy of Manlla Lhe CourL declared LhaL
1he ClLy of Manlla acLlng Lhrough lLs leglslaLlve branch has Lhe express power Lo
acqulre prlvaLe lands ln Lhe clLy and subdlvlde Lhese lands lnLo home loLs for sale Lo
boooflJe LenanLs or occupanLs Lhereof and Lo laborers and lowsalarled employees
of Lhe clLy
1haL only a few could acLually beneflL from Lhe exproprlaLlon of Lhe properLy does
noL dlmlnlsh lLs publlc use characLer lL ls slmply noL posslble Lo provlde all aL once
land and shelLer for all who need Lhem (Sumulong v Cuerrero 134 SC8A 461
1987)
Corollary Lo Lhe expanded noLlon of publlc use exproprlaLlon ls noL anymore
conflned Lo vasL LracLs of land and landed esLaLes (rovlnce of Camarlnes Sur v
CourL of Appeals C 8 no 103123 May 17 1993 ! M 1uason and Co lnc v Land
1enure AdmlnlsLraLlon 31 SC8A 413 1970) lL ls Lherefore of no momenL LhaL Lhe
land soughL Lo be exproprlaLed ln Lhls case ls less Lhan half a hecLare only (ulldo v
CourL of Appeals 122 SC8A 63 1983)
1hrough Lhe years Lhe publlc use requlremenL ln emlnenL domaln has evolved lnLo
a flexlble concepL lnfluenced by changlng condlLlons (Sumulong v Cuerrero sopto
ManoLok v naLlonal Pouslng AuLhorlLy 130 SC8A 89 1987 Pelrs of !uancho
Ardona v 8eyes 123 SC8A 220 1983) ubllc use now lncludes Lhe broader noLlon
of lndlrecL publlc beneflL or advanLage lncludlng ln parLlcular urban land reform
and houslng
33

We Lake [udlclal noLlce of Lhe facL LhaL urban land reform has become a paramounL
Lask ln vlew of Lhe acuLe shorLage of decenL houslng ln urban areas parLlcularly ln
MeLro Manlla neverLheless desplLe Lhe exlsLence of a serlous dllemma local
governmenL unlLs are noL glven an unbrldled auLhorlLy when exerclslng Lhelr power
of emlnenL domaln ln pursulL of soluLlons Lo Lhese problems 1he baslc rules sLlll
have Lo be followed whlch are as follows no person shall be deprlved of llfe
llberLy or properLy wlLhouL due process of law nor shall any person be denled Lhe
equal proLecLlon of Lhe laws (ArL 3 Sec 1 1987 ConsLlLuLlon) prlvaLe properLy
shall noL be Laken for publlc use wlLhouL [usL compensaLlon (ArL 3 SecLlon 9 1987
ConsLlLuLlon) 1hus Lhe exerclse by local governmenL unlLs of Lhe power of
emlnenL domaln ls noL wlLhouL llmlLaLlons Lven SecLlon 19 of Lhe 1991 Local
CovernmenL Code ls very expllclL LhaL lL musL comply wlLh Lhe provlslons of Lhe
ConsLlLuLlon and perLlnenL laws Lo wlL
Sec 19 LmlnenL uomaln A local governmenL unlL may Lhrough lLs chlef
execuLlve and acLlng pursuanL Lo an ordlnance exerclse Lhe power of emlnenL
domaln for publlc use or purpose or welfare for Lhe beneflL of Lhe poor and Lhe
landless upon paymenL of [usL compensaLlon potsooot to tbe ptovlsloos of tbe
coostltotloo ooJ pettloeot lows (Lmphasls supplled)
169

1he governlng law LhaL deals wlLh Lhe sub[ecL of exproprlaLlon for purposes of
urban land reform and houslng ls 8epubllc AcL no 7279 (urban uevelopmenL and
Pouslng AcL of 1992) and SecLlons 9 and 10 of whlch speclflcally provlde as follows
Sec 9 ltlotltles lo tbe ocpolsltloo of looJ Lands for soclallzed houslng shall be
acqulred ln Lhe followlng order
(a) 1hose owned by Lhe CovernmenL or any of lLs subdlvlslons lnsLrumenLallLles or
agencles lncludlng governmenLowned or conLrolled corporaLlons and Lhelr
subsldlarles
(b) Allenable lands of Lhe publlc domaln
(c) unreglsLered or abandoned and ldle lands
(d) 1hose wlLhln Lhe declared Areas for rlorlLy uevelopmenL Zonal lmprovemenL
slLes and Slum lmprovemenL and 8eseLLlemenL rogram slLes whlch have noL yeL
been acqulred
(e) 8agong Llpunan lmprovemenL of SlLes and Servlces or 8LlSS slLes whlch have noL
yeL been acqulred and
(f) rlvaLelyowned lands
Where onslLe developmenL ls found more pracLlcable and advanLageous Lo Lhe
beneflclarles Lhe prlorlLles menLloned ln Lhls secLlon shall noL apply 1he local
governmenL unlLs shall glve budgeLary prlorlLy Lo onslLe developmenL of
governmenL lands
Sec 10 Modes of Land AcqulslLlon 1he modes of acqulrlng lands for purposes of
Lhls AcL shall lnclude among oLhers commoolty mottqoqe looJ swopploq looJ
ossembly ot coosollJotloo looJ bookloq Joootloo to tbe Covetomeot jolotveotote
oqteemeot oeqotloteJ potcbose ooJ exptoptlotloo ltovlJeJ bowevet 1bot
exptoptlotloo sboll be tesotteJ to ooly wbeo otbet moJes of ocpolsltloo bove beeo
exboosteJ ltovlJeJ fottbet 1haL where exproprlaLlon ls resorLed Lo parcels of land
owned by small properLy owners shall be exempLed for purposes of Lhls AcL
rovlded flnally 1haL abandoned properLy as hereln deflned shall be reverLed and
escheaLed Lo Lhe SLaLe ln a proceedlng analogous Lo Lhe procedure lald down ln
8ule 91 of Lhe 8ules of CourL
lor Lhe purpose of soclallzed houslng governmenLowned and foreclosed
properLles shall be acqulred by Lhe local governmenL unlLs or by Lhe naLlonal
Pouslng AuLhorlLy prlmarlly Lhrough negoLlaLed purchase ltovlJeJ 1bot quallfled
beneflclarles who are acLual occupanLs of Lhe land shall be glven Lhe rlghL of flrsL
refusal (Lmphasls supplled)
very clear from Lhe abovequoLed provlslons are Lhe llmlLaLlons wlLh respecL Lo Lhe
order of prlorlLy ln acqulrlng prlvaLe lands and ln resorLlng Lo exproprlaLlon
proceedlngs as a means Lo acqulre Lhe same rlvaLe lands rank lasL ln Lhe order of
prlorlLy for purposes of soclallzed houslng ln Lhe same veln exproprlaLlon
proceedlngs are Lo be resorLed Lo only when Lhe oLher modes of acqulslLlon have
been exhausLed Compllance wlLh Lhese condlLlons musL be deemed mandaLory
because Lhese are Lhe only safeguards ln securlng Lhe rlghL of owners of prlvaLe
properLy Lo due process when Lhelr properLy ls exproprlaLed for publlc use
roceedlng from Lhe parameLers lald ouL ln Lhe above dlsqulslLlons we now pose
Lhe cruclal quesLlon uld Lhe ClLy of Manlla comply wlLh Lhe abovemenLloned
condlLlons when lL exproprlaLed peLlLloner lllsLreams properLles? We have
carefully scruLlnlzed Lhe records of Lhls case and found noLhlng LhaL would lndlcaLe
LhaL respondenL ClLy of Manlla complled wlLh Sec 9 and Sec 10 of 8A 7279
eLlLloner lllsLreams properLles were exproprlaLed and ordered condemned ln
favor of Lhe ClLy of Manlla sans any showlng LhaL resorL Lo Lhe acqulslLlon of oLher
lands llsLed under Sec 9 of 8A 7279 have proved fuLlle LvldenLly Lhere was a
vlolaLlon of peLlLloner lllsLreams rlghL Lo due process whlch musL accordlngly be
recLlfled
lndeed lL musL be emphaslzed LhaL Lhe SLaLe has a paramounL lnLeresL ln exerclslng
lLs power of emlnenL domaln for Lhe general good conslderlng LhaL Lhe rlghL of Lhe
SLaLe Lo exproprlaLe prlvaLe properLy as long as lL ls for publlc use always Lakes
precedence over Lhe lnLeresL of prlvaLe properLy owners Powever we musL noL
lose slghL of Lhe facL LhaL Lhe lndlvldual rlghLs affecLed by Lhe exerclse of such rlghL
are also enLlLled Lo proLecLlon bearlng ln mlnd LhaL Lhe exerclse of Lhls superlor
rlghL cannoL overrlde Lhe guaranLee of due process exLended by Lhe law Lo owners
of Lhe properLy Lo be exproprlaLed ln Lhls regard vlgllance over compllance wlLh
Lhe due process requlremenLs ls ln order
WPL8LlC8L Lhe peLlLlons are hereby C8An1Lu ln C8 123218 Lhe resoluLlons of
Lhe CourL of Appeals ln CAC 8 S nC 36904 daLed March 18 1996 and May 20
1996 are hereby 8LvL8SLu and SL1 ASluL ln C8 no 128077 Lhe resoluLlon of Lhe
CourL of Appeals ln CAC8 S no 43101 daLed !anuary 28 1997 and lebruary 18
1997 are 8LvL8SLu and SL1 ASluL

Gk No 98332 Ianuary 16 199S
MINLkS ASSCCIA1ICN CI 1L 9ILI99INLS INC VS IAC1CkAN

8CML8C I
1he lnsLanL peLlLlon seeks a rullng from Lhls CourL on Lhe valldlLy of Lwo
AdmlnlsLraLlve Crders lssued by Lhe SecreLary of Lhe ueparLmenL of LnvlronmenL
and naLural 8esources Lo carry ouL Lhe provlslons of cerLaln LxecuLlve Crders
promulgaLed by Lhe resldenL ln Lhe lawful exerclse of leglslaLlve powers
Pereln conLroversy was preclplLaLed by Lhe change lnLroduced by ArLlcle xll SecLlon
2 of Lhe 1987 ConsLlLuLlon on Lhe sysLem of exploraLlon developmenL and
uLlllzaLlon of Lhe counLrys naLural resources no longer ls Lhe uLlllzaLlon of
lnallenable lands of publlc domaln Lhrough llcense concesslon or lease under Lhe
1933 and 1973 ConsLlLuLlons
1
allowed under Lhe 1987 ConsLlLuLlon
1he adopLlon of Lhe concepL of joto teqollo
2
LhaL all naLural resources are owned by
Lhe SLaLe embodled ln Lhe 1933 1973 and 1987 ConsLlLuLlons as well as Lhe
170

recognlLlon of Lhe lmporLance of Lhe counLrys naLural resources noL only for
naLlonal economlc developmenL buL also for lLs securlLy and naLlonal
defense
3
ushered ln Lhe adopLlon of Lhe consLlLuLlonal pollcy of full conLrol and
supervlslon by Lhe SLaLe ln Lhe exploraLlon developmenL and uLlllzaLlon of Lhe
counLrys naLural resources 1he opLlons open Lo Lhe SLaLe are Lhrough dlrecL
underLaklng or by enLerlng lnLo coproducLlon [olnL venLure or producLlonsharlng
agreemenLs or by enLerlng lnLo agreemenL wlLh forelgnowned corporaLlons for
largescale exploraLlon developmenL and uLlllzaLlon
ArLlcle xll SecLlon 2 of Lhe 1987 ConsLlLuLlon provldes
Sec 2 All lands of Lhe publlc domaln waLers mlnerals coal peLroleum and oLher
mlneral olls all forces of poLenLlal energy flsherles foresLs or Llmber wlldllfe flora
and fauna and oLher naLural resources are owned by Lhe SLaLe WlLh Lhe excepLlon
of agrlculLural lands all oLher naLural resources shall noL be allenaLed 1be
explototloo Jevelopmeot ooJ otlllzotloo of oototol tesootces sboll be ooJet tbe foll
coottol ooJ sopetvlsloo of tbe 5tote 1be 5tote moy Jltectly ooJettoke socb
octlvltles ot lt moy eotet loto coptoJoctloo jolot veotote ot ptoJoctsbotloq
oqteemeots wltb llllploo cltlzeos ot cotpototloos ot ossoclotloos ot leost slxty pet
ceotom of wbose copltol ls owoeJ by socb cltlzeos 5ocb oqteemeots moy be fot o
petloJ oot exceeJloq tweotyflve yeots teoewoble fot oot mote tboo tweotyflve
yeots ooJ ooJet socb tetms ooJ cooJltloos os moy be ptovlJeJ by low ln cases of
waLer rlghLs for lrrlgaLlon waLer supply flsherles or lndusLrlal uses oLher Lhan Lhe
developmenL of waLer power beneflclal use may be Lhe measure and llmlL of Lhe
granL
xxx xxx xxx
1be lteslJeot moy eotet loto oqteemeots wltb fotelqoowoeJ cotpototloos lovolvloq
eltbet tecbolcol ot floooclol osslstooce fot lotqescole explototloo Jevelopmeot ooJ
otlllzotloo of mloetols pettoleom ooJ otbet mloetol olls occotJloq to tbe qeoetol
tetms ooJ cooJltloos ptovlJeJ by low boseJ oo teol coottlbotloos to tbe ecooomlc
qtowtb ooJ qeoetol welfote of tbe coootty lo socb oqteemeots tbe 5tote sboll
ptomote tbe Jevelopmeot ooJ ose of locol scleotlflc ooJ tecbolcol tesootces
1he resldenL shall noLlfy Lhe Congress of every conLracL enLered lnLo ln accordance
wlLh Lhls provlslon wlLhln LhlrLy days from lLs execuLlon (Lmphasls supplled)
ursuanL Lo Lhe mandaLe of Lhe abovequoLed provlslon leglslaLlve acLs
4
were
successlvely lssued by Lhe resldenL ln Lhe exerclse of her leglslaLlve
power
3

1o lmplemenL sald leglslaLlve acLs Lhe SecreLary of Lhe ueparLmenL of LnvlronmenL
and naLural 8esources (uLn8) ln Lurn promulgaLed AdmlnlsLraLlve Crder nos 37
and 82 Lhe valldlLy and consLlLuLlonallLy of whlch are belng challenged ln Lhls
peLlLlon
Cn !uly 10 1987 resldenL Corazon C Aqulno ln Lhe exerclse of her Lhen leglslaLlve
powers under ArLlcle ll SecLlon 1 of Lhe rovlslonal ConsLlLuLlon and ArLlcle xlll
SecLlon 6 of Lhe 1987 ConsLlLuLlon promulgaLed LxecuLlve Crder no 211
prescrlblng Lhe lnLerlm procedures ln Lhe processlng and approval of appllcaLlons
for Lhe exploraLlon developmenL and uLlllzaLlon of mlnerals pursuanL Lo Lhe 1987
ConsLlLuLlon ln order Lo ensure Lhe conLlnulLy of mlnlng operaLlons and acLlvlLles
and Lo hasLen Lhe developmenL of mlneral resources 1he perLlnenL provlslons read
as follows
Sec 1 LxlsLlng mlnlng permlLs llcenses leases and oLher mlnlng granLs lssued by
Lhe ueparLmenL of LnvlronmenL and naLural 8esources and 8ureau of Mlnes and
CeoSclences lncludlng exlsLlng operaLlng agreemenLs and mlnlng servlce
conLracLs shall conLlnue and remaln ln full force and effecL sub[ecL Lo Lhe same
Lerms and condlLlons as orlglnally granLed and/or approved
Sec 2 AppllcaLlons for Lhe exploraLlon developmenL and uLlllzaLlon of mlneral
resources lncludlng renewal appllcaLlons for approval of operaLlng agreemenLs and
mlnlng servlce conLracLs shall be accepLed and processed and may be approved
concomlLanLly LhereLo declaraLlons of locaLlons and all oLher klnds of mlnlng
appllcaLlons shall be accepLed and reglsLered by Lhe 8ureau of Mlnes and Ceo
Sclences
Sec 3 1he processlng evaluaLlon and approval of all mlnlng appllcaLlons
declaraLlons of locaLlons operaLlng agreemenLs and servlce conLracLs as provlded
for ln SecLlon 2 above shall be governed by resldenLlal uecree no 463 as
amended oLher exlsLlng mlnlng laws and Lhelr lmplemenLlng rules and regulaLlons
ltovlJeJ bowevet LhaL Lhe prlvlleges granLed as well as Lhe Lerms and condlLlons
Lhereof shall be sub[ecL Lo any and all modlflcaLlons or alLeraLlons whlch Congress
may adopL pursuanL Lo SecLlon 2 ArLlcle xll of Lhe 1987 ConsLlLuLlon
Cn !uly 23 1987 resldenL Aqulno llkewlse promulgaLed LxecuLlve Crder no 279
auLhorlzlng Lhe uLn8 SecreLary Lo negoLlaLe and conclude [olnL venLure co
producLlon or producLlonsharlng agreemenLs for Lhe exploraLlon developmenL
and uLlllzaLlon of mlneral resources and prescrlblng Lhe guldellnes for such
agreemenLs and Lhose agreemenLs lnvolvlng Lechnlcal or flnanclal asslsLance by
forelgnowned corporaLlons for largescale exploraLlon developmenL and
uLlllzaLlon of mlnerals 1he perLlnenL provlslons relevanL Lo Lhls peLlLlon are as
follows
Sec 1 1he SecreLary of Lhe ueparLmenL of LnvlronmenL and naLural 8esources
(herelnafLer referred Lo as Lhe SecreLary) ls hereby auLhorlzed Lo negoLlaLe and
enLer lnLo for and ln behalf of Lhe CovernmenL [olnL venLure coproducLlon or
producLlonsharlng agreemenLs for Lhe exploraLlon developmenL and uLlllzaLlon of
mlneral resources wlLh any llllplno clLlzens or corporaLlon or assoclaLlon aL leasL
slxLy percenL (60) of whose caplLal ls owned by llllplno clLlzens Such [olnL
venLure coproducLlon or producLlonsharlng agreemenLs may be for a perlod noL
exceedlng LwenLyflve years renewable for noL more Lhan LwenLyflve years and
shall lnclude Lhe mlnlmum Lerms and condlLlons prescrlbed ln SecLlon 2 hereof ln
Lhe execuLlon of a [olnL venLure coproducLlon or producLlon agreemenLs Lhe
conLracLlng parLles lncludlng Lhe CovernmenL may consolldaLe Lwo or more
171

conLlguous or geologlcally relaLed mlnlng clalms or leases and conslder Lhem as
one conLracL area for purposes of deLermlnlng Lhe sub[ecL of Lhe [olnL venLure co
producLlon or producLlonsharlng agreemenL
xxx xxx xxx
Sec 6 1he SecreLary shall promulgaLe such supplemenLary rules and regulaLlons as
may be necessary Lo effecLlvely lmplemenL Lhe provlslons of Lhls LxecuLlve Crder
Sec 7 All provlslons of resldenLlal uecree no 463 as amended oLher exlsLlng
mlnlng laws and Lhelr lmplemenLlng rules and regulaLlons or parLs Lhereof whlch
are noL lnconslsLenL wlLh Lhe provlslons of Lhls LxecuLlve Crder shall conLlnue ln
force and effecL
ursuanL Lo SecLlon 6 of LxecuLlve Crder no 279 Lhe uLn8 SecreLary lssued on
!une 23 1989 uLn8 AdmlnlsLraLlve Crder no 37 serles of 1989 capLloned
Culdellnes of Mlneral roducLlon Sharlng AgreemenL under LxecuLlve Crder no
279
6
under Lhe LranslLory provlslon of sald uLn8 AdmlnlsLraLlve Crder no 37
embodled ln lLs ArLlcle 9 all exlsLlng mlnlng leases or agreemenLs whlch were
granLed afLer Lhe effecLlvlLy of Lhe 1987 ConsLlLuLlon pursuanL Lo LxecuLlve Crder
no 211 excepL small scale mlnlng leases and Lhose perLalnlng Lo sand and gravel
and quarry resources coverlng an area of LwenLy (20) hecLares or less shall be
converLed lnLo producLlonsharlng agreemenLs wlLhln one (1) year from Lhe
effecLlvlLy of Lhese guldellnes
Cn november 20 1980 Lhe SecreLary of Lhe uLn8 AdmlnlsLraLlve Crder no 82
serles of 1990 laylng down Lhe rocedural Culdellnes on Lhe Award of Mlneral
roducLlon Sharlng AgreemenL (MSA) Lhrough negoLlaLlon
7

SecLlon 3 of Lhe aforemenLloned uLn8 AdmlnlsLraLlve Crder no 82 enumeraLes Lhe
persons or enLlLles requlred Lo submlL LeLLer of lnLenL (LCls) and Mlneral
roducLlon Sharlng AgreemenL (MSAs) wlLhln Lwo (2) years from Lhe effecLlvlLy of
uLn8 AdmlnlsLraLlve Crder no 37 or unLll !uly 17 1991 lallure Lo do so wlLhln Lhe
prescrlbed perlod shall cause Lhe abandonmenL of mlnlng quarry and sand and
gravel clalms SecLlon 3 of uLn8 AdmlnlsLraLlve Crder no 82 provldes
Sec 3 Submlsslon of LeLLer of lnLenL (LCls) and MSAs) 1he followlng shall submlL
Lhelr LCls and MSAs wlLhln Lwo (2) years from Lhe effecLlvlLy of uLn8 AC 37 or
unLll !uly 17 1991
l ueclaraLlon of LocaLlon (uCL) holders mlnlng lease appllcanLs exploraLlon
permlLees quarry appllcanLs and oLher mlnlng appllcanLs whose mlnlng/quarry
appllcaLlons have noL been perfecLed prlor Lo Lhe effecLlvlLy of uLn8 AdmlnlsLraLlve
Crder no 37
ll All holders of uCL acqulred afLer Lhe effecLlvlLy of uLn8 AC no 37
lll Polders of mlnlng leases or slmllar agreemenLs whlch were granLed afLer (Lhe)
effecLlvlLy of 1987 ConsLlLuLlon
lallure Lo submlL leLLers of lnLenL and MSA appllcaLlons/proposals wlLhln Lhe
prescrlbed perlod shall cause Lhe abandonmenL of mlnlng quarry and sand and
gravel clalms
1he lssuance and Lhe lmpedlng lmplemenLaLlon by Lhe uLn8 of AdmlnlsLraLlve
Crder nos 37 and 82 afLer Lhelr respecLlve effecLlvlLy daLes compelled Lhe Mlners
AssoclaLlon of Lhe hlllpplnes lnc
8
Lo flle Lhe lnsLanL peLlLlon assalllng Lhelr valldlLy
and consLlLuLlonallLy before Lhls CourL
ln Lhls peLlLlon for cettlototl peLlLloner Mlners AssoclaLlon of Lhe hlllpplnes lnc
malnly conLends LhaL respondenL SecreLary of uLn8 lssued boLh AdmlnlsLraLlve
Crder nos 37 and 82 ln excess of hls rulemaklng power under SecLlon 6 of
LxecuLlve Crder no 279 Cn Lhe assumpLlon LhaL Lhe quesLloned admlnlsLraLlve
orders do noL conform wlLh LxecuLlve Crder nos 211 and 279 peLlLloner conLends
LhaL boLh orders vlolaLe Lhe
nonlmpalrmenL of conLracL provlslon under ArLlcle lll SecLlon 10 of Lhe 1987
ConsLlLuLlon on Lhe ground LhaL AdmlnlsLraLlve Crder no 37 unduly preLermlnaLes
exlsLlng mlnlng agreemenLs and auLomaLlcally converLs Lhem lnLo producLlon
sharlng agreemenLs wlLhln one (1) year from lLs effecLlvlLy daLe Cn Lhe oLher hand
AdmlnlsLraLlve Crder no 82 declares LhaL fallure Lo submlL LeLLers of lnLenL and
Mlneral roducLlonSharlng AgreemenLs wlLhln Lwo (2) years from Lhe daLe of
effecLlvlLy of sald guldellne or on !uly 17 1991 shall cause Lhe abandonmenL of
Lhelr mlnlng quarry and sand gravel permlLs
Cn !uly 2 1991 Lhe CourL acLlng on peLlLloners urgenL expotte peLlLlon for
lssuance of a resLralnlng order/prellmlnary ln[uncLlon lssued a 1emporary
8esLralnlng Crder upon posLlng of a 30000000 bond en[olnlng Lhe enforcemenL
and lmplemenLaLlon of uLn8 AdmlnlsLraLlve Crder nos 37 and 82 as amended
Serles of 1989 and 1990 respecLlvely
9

Cn november 13 1991 ConLlnenLal Marble CorporaLlon
10
Lhru lLs resldenL
lellpe A uavld soughL Lo lnLervene
11
ln Lhls case alleglng LhaL because of Lhe
Lemporary order lssued by Lhe CourL Lhe uLn8 8eglonal Cfflce no 3 ln San
lernando ampanga refused Lo renew lLs Mlnes 1emporary ermlL afLer lL explred
on !uly 31 1991 Clalmlng LhaL lLs rlghLs and lnLeresLs are pre[udlclally affecLed by
Lhe lmplemenLaLlon of uLn8 AdmlnlsLraLlve Crder nos 37 and 82 lL [olned
peLlLloner hereln ln seeklng Lo annul AdmlnlsLraLlve Crder nos 37 and 82 and
prayed LhaL Lhe uLn8 8eglonal Cfflce no 3 be ordered Lo lssue a Mlnes 1emporary
ermlL ln lLs favor Lo enable lL Lo operaLe durlng Lhe pendency of Lhe sulL
ubllc respondenLs were acqulred Lo commenL on Lhe ConLlnenLal Marble
CorporaLlons peLlLlon for lnLervenLlon ln Lhe resoluLlon of november 28 1991
12

now Lo Lhe maln peLlLlon lf lLs argued LhaL AdmlnlsLraLlve Crder nos 37 and 82
have Lhe effecL of repeallng or abrogaLlng exlsLlng mlnlng laws
13
whlch are noL
lnconslsLenL wlLh Lhe provlslons of LxecuLlve Crder no 279 lnvoklng SecLlon 7 of
sald LxecuLlve Crder no 279
14
peLlLloner malnLalns LhaL respondenL uLn8
SecreLary cannoL provlde guldellnes such as AdmlnlsLraLlve Crder nos 37 and 82
whlch are lnconslsLenL wlLh Lhe provlslons of LxecuLlve Crder no 279 because boLh
LxecuLlve Crder nos 211 and 279 merely relLeraLed Lhe accepLance and
reglsLraLlon of declaraLlons of locaLlon and all oLher klnds of mlnlng appllcaLlons by
172

Lhe 8ureau of Mlnes and CeoSclences under Lhe provlslons of resldenLlal uecree
no 463 as amended unLll Congress opLs Lo modlfy or alLer Lhe same
ln oLher words peLlLloner would have us rule LhaL uLn8 AdmlnlsLraLlve Crder nos
37 and 82 lssued by Lhe uLn8 SecreLary ln Lhe exerclse of hls rulemaklng power are
LalnLed wlLh lnvalldlLy lnasmuch as boLh conLravene or subverL Lhe provlslons of
LxecuLlve Crder nos 211 and 279 or embrace maLLers noL covered nor lnLended Lo
be covered by Lhe aforesald laws
We dlsagree
We relLeraLe Lhe prlnclple LhaL Lhe power of admlnlsLraLlve offlclals Lo promulgaLe
rules and regulaLlons ln Lhe lmplemenLaLlon of a sLaLuLe ls necessarlly llmlLed only
Lo carrylng lnLo effecL whaL ls provlded ln Lhe leglslaLlve enacLmenL 1he prlnclple
was enunclaLed as early as 1908 ln Lhe case of uolteJ 5totes v 8ottlos
13
1he scope
of Lhe exerclse of such rulemaklng power was clearly expressed ln Lhe case of
uolteJ 5totes v 1oposl Molloo
16
declded ln 1914 Lhus Cf course Lhe regulaLlons
adopLed under leglslaLlve auLhorlLy by a parLlcular deparLmenL musL be ln harmony
wlLh Lhe provlslons of Lhe law and for Lhe sole purpose of carrylng lnLo effecL lLs
general provlslons 8y such regulaLlons of course Lhe law lLself can noL be
exLended So long however as Lhe regulaLlons relaLe solely Lo carrylng lnLo effecL
lLs general provlslons 8y such regulaLlons of course Lhe law lLself can noL be
exLended So long however as Lhe regulaLlons relaLe solely Lo carrylng lnLo effecL
Lhe provlslon of Lhe law Lhey are valld
8ecenLly Lhe case of leople v Moceteo
17
gave a brlef dellenaLlon of Lhe scope of
sald power of admlnlsLraLlve offlclals
AdmlnlsLraLlve regulaLlons adopLed under leglslaLlve auLhorlLy by a parLlcular
deparLmenL musL be ln harmony wlLh Lhe provlslons of Lhe law and should be for
Lhe sole purpose of carrylng lnLo effecL lLs general provlslon 8y such regulaLlons of
course Lhe law lLself cannoL be exLended (uS v 1upasl Mollna sopto) An
admlnlsLraLlve agency cannoL amend an acL of Congress (SanLos vs LsLenzo 109
hll 419 422 1eoxon vs Members of Lhe 8oard of AdmlnlsLraLors L23619 !une
30 1970 33 SC8A 383 Manuel vs Ceneral AudlLlng Cfflce L28932 uecember 29
1971 42 SC8A 660 ueluao v CasLeel L21906 AugusL 29 1969 29 SC8A 330)
1he rulemaklng power musL be conflned Lo deLalls for regulaLlng Lhe mode or
proceedlng Lo carry lnLo effecL Lhe law as lL has been enacLed 1he power cannoL be
exLended Lo amendlng or expandlng Lhe sLaLuLory requlremenLs or Lo embrace
maLLers noL covered by Lhe sLaLuLe 8ules LhaL subverL Lhe sLaLuLe cannoL be
sancLloned (unlverslLy of SanLo 1omas v 8oard of 1ax Appeals 93 hll 376 382
clLlng 12 C! 84346 As Lo lnvalld regulaLlons see CollecLor of lnLernal 8evenue v
vlllaflor 69 hll 319 Wlse Co v Meer 78 hll 633 676 uel Mar v hll
veLerans AdmlnlsLraLlon L27299 !une 27 1973 31 SC8A 340 349)
xxx xxx xxx
1he rule or regulaLlon should be wlLhln Lhe scope of Lhe sLaLuLory auLhorlLy
granLed by Lhe leglslaLure Lo Lhe admlnlsLraLlve agency (uavls AdmlnlsLraLlve Law
p 194 197 clLed ln vlcLorlas Mllllng Co lnc v Soclal SecurlLy Commlsslon 114
hll 333 338)
ln case of dlscrepancy beLween Lhe baslc law and a rule or regulaLlon lssued Lo
lmplemenL sald law Lhe baslc prevalls because sald rule or regulaLlons cannoL go
beyond Lhe Lerms and provlslons of Lhe baslc law (eople v Llm 108 hll 1091)
Conslderlng LhaL admlnlsLraLlve rules draw llfe from Lhe sLaLuLe whlch Lhey seek Lo
lmplemenL lL ls obvlous LhaL Lhe sprlng cannoL rlse hlgher Lhan lLs source We now
examlne peLlLloners argumenL LhaL uLn8 AdmlnlsLraLlve Crder nos 37 and 82
conLravene LxecuLlve Crder nos 211 and 279 as boLh operaLe Lo repeal or abrogaLe
resldenLlal uecree no 463 as amended and oLher mlnlng laws allegedly
acknowledged as Lhe prlnclpal law under LxecuLlve Crder nos 211 and 279
eLlLloners lnslsLence on Lhe appllcaLlon of resldenLlal uecree no 463 as
amended as Lhe governlng law on Lhe accepLance and approval of declaraLlons of
locaLlon and all oLher klnds of appllcaLlons for Lhe exploraLlon developmenL and
uLlllzaLlon of mlneral resources pursuanL Lo LxecuLlve Crder no 211 ls erroneous
resldenLlal uecree no 463 as amended perLalns Lo Lhe old sysLem of exploraLlon
developmenL and uLlllzaLlon of naLural resources Lhrough llcense concesslon or
lease whlch however has been dlsallowed by ArLlcle xll SecLlon 2 of Lhe 1987
ConsLlLuLlon 8y vlrLue of Lhe sald consLlLuLlonal mandaLe and lLs lmplemenLlng law
LxecuLlve Crder no 279 whlch superseded LxecuLlve Crder no 211 Lhe provlslons
deallng on llcense concesslon or lease of mlneral resources under resldenLlal
uecree no 463 as amended and oLher exlsLlng mlnlng laws are deemed repealed
and Lherefore ceased Lo operaLe as Lhe governlng law ln oLher words ln all oLher
areas of admlnlsLraLlon and managemenL of mlneral lands Lhe provlslons of
resldenLlal uecree no 463 as amended and oLher exlsLlng mlnlng laws sLlll
govern SecLlon 7 of LxecuLlve Crder no 279 provldes Lhus
Sec 7 All provlslons of resldenLlal uecree no 463 as amended oLher exlsLlng
mlnlng laws and Lhelr lmplemenLlng rules and regulaLlons or parLs Lhereof whlch
are noL lnconslsLenL wlLh Lhe provlslons of Lhls LxecuLlve Crder shall conLlnue ln
force and effecL
Speclflcally Lhe provlslons of resldenLlal uecree no 463 as amended on lease of
mlnlng clalms under ChapLer vlll quarry permlLs on prlvaLelyowned lands of
quarry llcense on publlc lands under ChapLer xlll and oLher relaLed provlslons on
lease llcense and permlLs are noL only lnconslsLenL wlLh Lhe tolsoo Jette for whlch
LxecuLlve Crder no 279 was passed buL conLravene Lhe express mandaLe of ArLlcle
xll SecLlon 2 of Lhe 1987 ConsLlLuLlon lL force and effecLlvlLy ls Lhus foreclosed
upon Lhe effecLlvlLy of Lhe 1987 ConsLlLuLlon on lebruary 2 1987
18
Lhe SLaLe
assumed a more dynamlc role ln Lhe exploraLlon developmenL and uLlllzaLlon of
Lhe naLural resources of Lhe counLry ArLlcle xll SecLlon 2 of Lhe sald CharLer
expllclLly ordalns LhaL Lhe exploraLlon developmenL and uLlllzaLlon of naLural
resources shall be under Lhe full conLrol and supervlslon of Lhe SLaLe ConsonanL
LherewlLh Lhe exploraLlon developmenL and uLlllzaLlon of naLural resources may
173

be underLaken by means of dlrecL acL of Lhe SLaLe or lL may opL Lo enLer lnLo co
producLlon [olnL venLure or producLlonsharlng agreemenLs or lL may enLer lnLo
agreemenLs wlLh forelgnowned corporaLlons lnvolvlng elLher Lechnlcal or flnanclal
asslsLance for largescale exploraLlon developmenL and uLlllzaLlon of mlnerals
peLroleum and oLher mlneral olls accordlng Lo Lhe general Lerms and condlLlons
provlded by law based on real conLrlbuLlons Lo Lhe economlc growLh and general
welfare of Lhe counLry
Clven Lhese conslderaLlons Lhere ls no clear showlng LhaL respondenL uLn8
SecreLary has Lranscended Lhe bounds demarcaLed by LxecuLlve Crder no 279 for
Lhe exerclse of hls rulemaklng power LanLamounL Lo a grave abuse of dlscreLlon
SecLlon 6 of LxecuLlve Crder no 279 speclflcally auLhorlzes sald offlclal Lo
promulgaLe such supplemenLary rules and regulaLlons as may be necessary Lo
effecLlvely lmplemenL Lhe provlslons Lhereof Moreover Lhe sub[ecL soughL Lo be
governed and regulaLed by Lhe quesLloned orders ls germane Lo Lhe ob[ecLs and
purposes of LxecuLlve Crder no 279 speclflcally lssued Lo carry ouL Lhe mandaLe of
ArLlcle xll SecLlon 2 of Lhe 1987 ConsLlLuLlon
eLlLloner llkewlse malnLalns LhaL AdmlnlsLraLlve Crder no 37 ln relaLlon Lo
AdmlnlsLraLlve Crder no 82 lmpalrs vesLed rlghLs as Lo vlolaLe Lhe nonlmpalrmenL
of conLracL docLrlne guaranLeed under ArLlcle lll SecLlon 10 of Lhe 1987
ConsLlLuLlon because ArLlcle 9 of AdmlnlsLraLlve Crder no 37 unduly pre
LermlnaLes and auLomaLlcally converLs mlnlng leases and oLher mlnlng agreemenLs
lnLo producLlonsharlng agreemenLs wlLhln one (1) year from effecLlvlLy of sald
guldellne whlle SecLlon 3 of AdmlnlsLraLlve Crder no 82 declares LhaL fallure Lo
submlL LeLLers of lnLenL (LCls) and MSAs wlLhln Lwo (2) years from Lhe effecLlvlLy
of AdmlnlsLraLlve Crder no 37 or unLll !uly 17 1991 shall cause Lhe abandonmenL
of mlnlng quarry and sand gravel permlLs
ln SupporL of Lhe above conLenLlon lL ls argued by peLlLloner LhaL LxecuLlve Crder
no 279 does noL conLemplaLe auLomaLlc converslon of mlnlng lease agreemenLs
lnLo mlnlng producLlonsharlng agreemenL as provlded under ArLlcle 9
AdmlnlsLraLlve Crder no 37 and/or Lhe consequenL abandonmenL of mlnlng clalms
for fallure Lo submlL LCls and MSAs under SecLlon 3 AdmlnlsLraLlve Crder no 82
because SecLlon 1 of sald LxecuLlve Crder no 279 empowers Lhe uLn8 SecreLary Lo
negoLlaLe and enLer lnLo volunLary agreemenLs whlch musL seL forLh Lhe mlnlmum
Lerms and condlLlons provlded under SecLlon 2 Lhereof Moreover peLlLloner
conLends LhaL Lhe power Lo regulaLe and enLer lnLo mlnlng agreemenLs does noL
lnclude Lhe power Lo preLermlnaLe exlsLlng mlnlng lease agreemenLs
1o begln wlLh we dlspel Lhe lmpresslon creaLed by peLlLloners argumenL LhaL Lhe
quesLloned admlnlsLraLlve orders unduly preLermlnaLe exlsLlng mlnlng leases ln
general A dlsLlncLlon whlch spells a real dlfference musL be drawn ArLlcle xll
SecLlon 2 of Lhe 1987 ConsLlLuLlon does noL apply reLroacLlvely Lo llcense
concesslon or lease granLed by Lhe governmenL under Lhe 1973 ConsLlLuLlon or
before Lhe effecLlvlLy of Lhe 1987 ConsLlLuLlon on lebruary 2 1987 1he lnLenL Lo
apply prospecLlvely sald consLlLuLlonal provlslon was sLressed durlng Lhe
dellberaLlons ln Lhe ConsLlLuLlonal Commlsslon
19
Lhus
M8 uAvluL under Lhe proposal l noLlce LhaL excepL for Lhe lnallenable lands of
Lhe publlc domaln all oLher naLural resources cannoL be allenaLed and ln respecL Lo
allenable lands of Lhe publlc domaln prlvaLe corporaLlons wlLh Lhe requlred
ownershlp by llllplno clLlzens can only lease Lhe same necessarlly lnsofar as oLher
naLural resources are concerned lL would only be Lhe SLaLe whlch can explolL
develop explore and uLlllze Lhe same Powever Lhe SLaLe may enLer lnLo a [olnL
venLure coproducLlon or producLlonsharlng ls LhaL noL correcL?
M8 vlLLLCAS ?es
M8 uAvluL ConsequenLly henceforLh upon Lhe approval of Lhls ConsLlLuLlon no
Llmber or foresL concesslon permlLs or auLhorlzaLlon can be excluslvely granLed Lo
any clLlzen of Lhe hlllpplnes nor Lo any corporaLlon quallfled Lo acqulre lands of Lhe
publlc domaln?
M8 vlLLLCAS Would Commlssloner Monsod llke Lo commenL on LhaL? l Lhlnk hls
answer ls yes
M8 uAvluL So whaL wlll happen now llcense or concesslons earller granLed by Lhe
hlllpplne governmenL Lo prlvaLe corporaLlons or Lo llllplno clLlzens? Would Lhey be
deemed repealed?
M8 vlLLLCAS 1hls ls noL applled reLroacLlvely 1hey wlll be respecLed
M8 uAvluL ln effecL Lhey wlll be deemed repealed?
M8 vlLLLCAS no (Lmphasls supplled)
uurlng Lhe LranslLlon perlod or afLer Lhe effecLlvlLy of Lhe 1987 ConsLlLuLlon on
lebruary 2 1987 unLll Lhe flrsL Congress under sald ConsLlLuLlon was convened on
!uly 27 1987 Lwo (2) successlve laws LxecuLlve Crder nos 211 and 279 were
promulgaLed Lo govern Lhe processlng and approval of appllcaLlons for Lhe
exploraLlon developmenL and uLlllzaLlon of mlnerals 1o carry ouL Lhe purposes of
sald laws Lhe quesLloned AdmlnlsLraLlve Crder nos 37 and 82 now belng assalled
were lssued by Lhe uLn8 SecreLary
ArLlcle 9 of AdmlnlsLraLlve Crder no 37 provldes
A81lCLL 9
18AnSl1C8? 8CvlSlCn
91 All exlsLlng mlnlng leases or agreemenLs whlch were granLed afLer Lhe
effecLlvlLy of Lhe 1987 ConsLlLuLlon pursuanL Lo LxecuLlve Crder no 211 excepL
small scale mlnlng leases and Lhose perLalnlng Lo sand and gravel and quarry
resources coverlng an area of LwenLy (20) hecLares or less shall be sub[ecL Lo Lhese
guldellnes All such leases or agreemenLs shall be converLed lnLo producLlon sharlng
agreemenL wlLhln one (1) year from Lhe effecLlvlLy of Lhese guldellnes Powever
any mlnlmum flrm whlch has esLabllshed mlnlng rlghLs under resldenLlal uecree
463 or oLher laws may avall of Lhe provlslons of LC 279 by followlng Lhe procedures
seL down ln Lhls documenL
174

lL ls clear from Lhe aforesLaLed provlslon LhaL AdmlnlsLraLlve Crder no 37 applles
only Lo all exlsLlng mlnlng leases or agreemenLs whlch were granLed afLer Lhe
effecLlvlLy of Lhe 1987 ConsLlLuLlon pursuanL Lo LxecuLlve Crder no 211 lL bears
menLlon LhaL under Lhe LexL of LxecuLlve Crder no 211 Lhere ls a reservaLlon
clause whlch provldes LhaL Lhe prlvlleges as well as Lhe Lerms and condlLlons of all
exlsLlng mlnlng leases or agreemenLs granLed afLer Lhe effecLlvlLy of Lhe 1987
ConsLlLuLlon pursuanL Lo LxecuLlve Crder no 211 shall be sub[ecL Lo any and all
modlflcaLlons or alLeraLlons whlch Congress may adopL pursuanL Lo ArLlcle xll
SecLlon 2 of Lhe 1987 ConsLlLuLlon Pence Lhe sLrlcLures of Lhe
nonlmpalrmenL of conLracL clause under ArLlcle lll SecLlon 10 of Lhe 1987
ConsLlLuLlon
20
do noL apply Lo Lhe aforesald leases or agreemenLs granLed afLer Lhe
effecLlvlLy of Lhe 1987 ConsLlLuLlon pursuanL Lo LxecuLlve Crder no 211 1hey can
be amended modlfled or alLered by a sLaLuLe passed by Congress Lo achleve Lhe
purposes of ArLlcle xll SecLlon 2 of Lhe 1987 ConsLlLuLlon
Clearly LxecuLlve Crder no 279 lssued on !uly 23 1987 by resldenL Corazon C
Aqulno ln Lhe exerclse of her leglslaLlve power has Lhe force and effecL of a sLaLuLe
or law passed by Congress As such lL valldly modlfled or alLered Lhe prlvlleges
granLed as well as Lhe Lerms and condlLlons of mlnlng leases and agreemenLs under
LxecuLlve Crder no 211 afLer Lhe effecLlvlLy of Lhe 1987 ConsLlLuLlon by auLhorlzlng
Lhe uLn8 SecreLary Lo negoLlaLe and conclude [olnL venLure coproducLlon or
producLlonsharlng agreemenLs for Lhe exploraLlon developmenL and uLlllzaLlon of
mlneral resources and prescrlblng Lhe guldellnes for such agreemenLs and Lhose
agreemenLs lnvolvlng Lechnlcal or flnanclal asslsLance by forelgnowned
corporaLlons for largescale exploraLlon developmenL and uLlllzaLlon of mlnerals
Well seLLled ls Lhe rule however LhaL regardless of Lhe reservaLlon clause mlnlng
leases or agreemenLs granLed by Lhe SLaLe such as Lhose granLed pursuanL Lo
LxecuLlve Crder no 211 referred Lo Lhls peLlLlon are sub[ecL Lo alLeraLlons Lhrough
a reasonable exerclse of Lhe pollce power of Lhe SLaLe ln Lhe 1930 case of Ooqsloko
v Comboo
21
where Lhe consLlLuLlonallLy of 8epubllc AcL no 34 changlng Lhe 3030
sharecropplng sysLem ln exlsLlng agrlculLural Lenancy conLracLs Lo 3343 ln favor of
LenanLs was challenged Lhe CourL upholdlng Lhe consLlLuLlonallLy of Lhe law
emphaslzed Lhe superlorlLy of Lhe pollce power of Lhe SLaLe over Lhe sancLlLy of Lhls
conLracL
1he prohlblLlon conLalned ln consLlLuLlonal provlslons agalnsL lmpalrlng Lhe
obllgaLlon of conLracLs ls noL an absoluLe one and lL ls noL Lo be read wlLh llLeral
exacLness llke a maLhemaLlcal formula Such provlslons are resLrlcLed Lo conLracLs
whlch respecL properLy or some ob[ecL or value and confer rlghLs whlch may be
asserLed ln a courL of [usLlce and have no appllcaLlon Lo sLaLuLe relaLlng Lo publlc
sub[ecLs wlLhln Lhe domaln of Lhe general leglslaLlve powers of Lhe SLaLe and
lnvolvlng Lhe publlc rlghLs and publlc welfare of Lhe enLlre communlLy affecLed by lL
1hey do noL prevenL a proper exerclse by Lhe SLaLe of lLs pollce powers 8y enacLlng
regulaLlons reasonably necessary Lo secure Lhe healLh safeLy morals comforL or
general welfare of Lhe communlLy even Lhe conLracLs may Lhereby be affecLed for
such maLLer can noL be placed by conLracL beyond Lhe power of Lhe SLaLe shall
regulaLes and conLrol Lhem
22

ln komos v cAk ooJ komos
23
where Lhe consLlLuLlonallLy of SecLlon 14 of 8epubllc
AcL no 1199 auLhorlzlng Lhe LenanLs Lo charge from share Lo leasehold Lenancy was
challenged on Lhe ground LhaL lL lmpalrs Lhe obllgaLlon of conLracLs Lhe CourL ruled
LhaL obllgaLlons of conLracLs musL yleld Lo a proper exerclse of Lhe pollce power
when such power ls exerclsed Lo preserve Lhe securlLy of Lhe SLaLe and Lhe means
adopLed are reasonably adapLed Lo Lhe accompllshmenL of LhaL end and are
Lherefore noL arblLrary or oppresslve
1he economlc pollcy on Lhe exploraLlon developmenL and uLlllzaLlon of Lhe
counLrys naLural resources under ArLlcle xll SecLlon 2 of Lhe 1987 ConsLlLuLlon
could noL be any clearer As enunclaLed ln ArLlcle xll SecLlon 1 of Lhe 1987
ConsLlLuLlon Lhe exploraLlon developmenL and uLlllzaLlon of naLural resources
under Lhe new sysLem mandaLed ln SecLlon 2 ls geared Lowards a more equlLable
dlsLrlbuLlon of opporLunlLles lncome and wealLh a susLalned lncrease ln Lhe
amounL of goods and servlces produced by Lhe naLlon for Lhe beneflL of Lhe people
and an expandlng producLlvlLy as Lhe key Lo ralslng Lhe quallLy of llfe for all
especlally Lhe underprlvlleged
1he exploraLlon developmenL and uLlllzaLlon of Lhe counLrys naLural resources are
maLLers vlLal Lo Lhe publlc lnLeresL and Lhe general welfare of Lhe people 1he
recognlLlon of Lhe lmporLance of Lhe counLrys naLural resources was expressed as
early as Lhe 1984 ConsLlLuLlonal ConvenLlon ln connecLlon LherewlLh Lhe 1986 u
ConsLlLuLlon ro[ecL observed 1he 1984 ConsLlLuLlonal ConvenLlon recognlzed Lhe
lmporLance of our naLural resources noL only for lLs securlLy and naLlonal defense
Cur naLural resources whlch consLlLuLe Lhe excluslve herlLage of Lhe llllplno naLlon
should be preserved for Lhose under Lhe soverelgn auLhorlLy of LhaL naLlon and for
Lhelr prosperlLy 1hls wlll ensure Lhe counLrys survlval as a vlable and soverelgn
republlc
Accordlngly Lhe SLaLe ln Lhe exerclse of lLs pollce power ln Lhls regard may noL be
precluded by Lhe consLlLuLlonal resLrlcLlon on nonlmpalrmenL of conLracL from
alLerlng modlfylng and amendlng Lhe mlnlng leases or agreemenLs granLed under
resldenLlal uecree no 463 as amended pursuanL Lo LxecuLlve Crder no 211
ollce ower belng coexLenslve wlLh Lhe necesslLles of Lhe case and Lhe demands
of publlc lnLeresL exLends Lo all Lhe vlLal publlc needs 1he passage of LxecuLlve
Crder no 279 whlch superseded LxecuLlve Crder no 211 provlded legal basls for
Lhe uLn8 SecreLary Lo carry lnLo effecL Lhe mandaLe of ArLlcle xll SecLlon 2 of Lhe
1987 ConsLlLuLlon
nowhere ln AdmlnlsLraLlve Crder no 37 ls Lhere any provlslon whlch would lead us
Lo conclude LhaL Lhe quesLloned order auLhorlzes Lhe auLomaLlc converslon of
mlnlng leases and agreemenLs granLed afLer Lhe effecLlvlLy of Lhe 1987 ConsLlLuLlon
pursuanL Lo LxecuLlve Crder no 211 Lo producLlonsharlng agreemenLs 1he
173

provlslon ln ArLlcle 9 of AdmlnlsLraLlve Crder no 37 LhaL all such leases or
agreemenLs shall be converLed lnLo producLlon sharlng agreemenLs wlLhln one (1)
year from Lhe effecLlvlLy of Lhese guldellnes could noL posslblllLy conLemplaLe a
unllaLeral declaraLlon on Lhe parL of Lhe CovernmenL LhaL all exlsLlng mlnlng leases
and agreemenLs are auLomaLlcally converLed lnLo
producLlonsharlng agreemenLs Cn Lhe conLrary Lhe use of Lhe Lerm producLlon
sharlng agreemenL lf Lhey are so mlnded negoLlaLlon negaLes compulslon or
auLomaLlc converslon as suggesLed by peLlLloner ln Lhe lnsLanL peLlLlon A mlneral
producLlonsharlng agreemenL (MSA) requlres a meeLlng of Lhe mlnds of Lhe
parLles afLer negoLlaLlons arrlved aL ln good falLh and ln accordance wlLh Lhe
procedure lald down ln Lhe subsequenL AdmlnlsLraLlve Crder no 82
We Lherefore rule LhaL Lhe quesLloned admlnlsLraLlve orders are reasonably
dlrecLed Lo Lhe accompllshmenL of Lhe purposes of Lhe law under whlch Lhey were
lssued and were lnLended Lo secure Lhe paramounL lnLeresL of Lhe publlc Lhelr
economlc growLh and welfare 1he valldlLy and consLlLuLlonallLy of AdmlnlsLraLlve
Crder nos 37 and 82 musL be susLalned and Lhelr force and effecL upheld
We now proceed Lo Lhe peLlLlonlnlnLervenLlon under SecLlon 2 8ule 12 of Lhe
8evlsed 8ules of CourL an lnLervenLlon ln a case ls proper when Lhe lnLervenor has
a legal lnLeresL ln Lhe maLLer ln llLlgaLlon or ln Lhe success of elLher of Lhe parLles
or an lnLeresL agalnsL boLh or when he ls so slLuaLed as Lo be adversely affecLed by
a dlsLrlbuLlon or oLher dlsposlLlon of properLy ln Lhe cusLody of Lhe courL or of an
offlcer Lhereof ConLlnenLal Marble CorporaLlon has noL sufflclenLly shown LhaL lL
falls under any of Lhe caLegorles menLloned above 1he refusal of Lhe uLn8
8eglonal Cfflce no 3 San lernando ampanga Lo renew lLs Mlnes 1emporary
ermlL does noL [usLlfy such an lnLervenLlon by ConLlnenLal Marble CorporaLlon for
Lhe purpose of obLalnlng a dlrecLlve from Lhls CourL for Lhe lssuance of sald permlL
WheLher or noL ConLlnenLal Marble maLLer besL addressed Lo Lhe approprlaLe
governmenL body buL cerLalnly noL Lhrough Lhls CourL lnLervenLlon ls hereby
uLnlLu
WPL8LlC8L Lhe peLlLlon ls ulSMlSSLu for lack of merlL 1he 1emporary 8esLralnlng
Crder lssued on !uly 2 1991 ls hereby Lll1Lu
SC C8uL8Lu





LC2ANC VS MAk1INL2
Gk No L63419 December 18 1986

?A I
1he consLlLuLlonallLy of 8aLas ambansa 8llang 22 (8 22 for shorL) popularly
known as Lhe 8ounclng Check Law whlch was approved on Aprll 3 1979 ls Lhe sole
lssue presenLed by Lhese peLlLlons for declslon 1he quesLlon ls deflnlLely one of
flrsL lmpresslon ln our [urlsdlcLlon
1hese peLlLlons arose from cases lnvolvlng prosecuLlon of offenses under Lhe
sLaLuLe 1he defendanLs ln Lhose cases moved seasonably Lo quash Lhe lnformaLlons
on Lhe ground LhaL Lhe acLs charged dld noL consLlLuLe an offense Lhe sLaLuLe belng
unconsLlLuLlonal 1he moLlons were denled by Lhe respondenL Lrlal courLs excepL ln
one case whlch ls Lhe sub[ecL of C 8 no 73789 whereln Lhe Lrlal courL declared
Lhe law unconsLlLuLlonal and dlsmlssed Lhe case 1he parLles adversely affecLed
have come Lo us for rellef
As a Lhreshold lssue Lhe former SollclLor Ceneral ln hls commenL on Lhe peLlLlons
malnLalned Lhe posLure LhaL lL was premaLure for Lhe accused Lo elevaLe Lo Lhls
CourL Lhe orders denylng Lhelr moLlons Lo quash Lhese orders belng lnLerlocuLory
Whlle Lhls ls correcL as a general rule we have ln [usLlflable cases lnLervened Lo
revlew Lhe lower courLs denlal of a moLlon Lo quash
1
ln vlew of Lhe lmporLance of
Lhe lssue lnvolved here Lhere ls no doubL ln our mlnd LhaL Lhe lnsLanL peLlLlons
should be enLerLalned and Lhe consLlLuLlonal challenge Lo 8 22 resolved prompLly
one way or Lhe oLher ln order Lo puL Lo resL Lhe doubLs and uncerLalnLy LhaL exlsL ln
legal and [udlclal clrcles and Lhe general publlc whlch have unnecessarlly caused a
delay ln Lhe dlsposlLlon of cases lnvolvlng Lhe enforcemenL of Lhe sLaLuLe
lor Lhe purpose of resolvlng Lhe consLlLuLlonal lssue presenLed here we do noL flnd
lL necessary Lo delve lnLo Lhe speclflcs of Lhe lnformaLlons lnvolved ln Lhe cases
whlch are Lhe sub[ecL of Lhe peLlLlons before us
2
1he language of 8 22 ls broad
enough Lo cover all klnds of checks wheLher presenL daLed or posLdaLed or
wheLher lssued ln paymenL of preexlsLlng obllgaLlons or glven ln muLual or
slmulLaneous exchange for someLhlng of value
l
8 22 punlshes a person who makes or draws and lssues any check on accounL or
for value knowlng aL Lhe Llme of lssue LhaL he does noL have sufflclenL funds ln or
credlL wlLh Lhe drawee bank for Lhe paymenL of sald check ln full upon
presenLmenL whlch check ls subsequenLly dlshonored by Lhe drawee bank for
lnsufflclency of funds or credlL or would have been dlshonored for Lhe same reason
had noL Lhe drawer wlLhouL any valld reason ordered Lhe bank Lo sLop paymenL
1he penalLy prescrlbed for Lhe offense ls lmprlsonmenL of noL less Lhan 30 days nor
more Lhan one year or a flne or noL less Lhan Lhe amounL of Lhe check nor more
Lhan double sald amounL buL ln no case Lo exceed 20000000 or boLh such flne
and lmprlsonmenL aL Lhe dlscreLlon of Lhe courL
3

1he sLaLuLe llkewlse lmposes Lhe same penalLy on any person who havlng
sufflclenL funds ln or credlL wlLh Lhe drawee bank when he makes or draws and
lssues a check shall fall Lo keep sufflclenL funds or Lo malnLaln a credlL Lo cover Lhe
176

full amounL of Lhe check lf presenLed wlLhln a perlod of nlneLy (90) days from Lhe
daLe appearlng Lhereon for whlch reason lL ls dlshonored by Lhe drawee bank
4

An essenLlal elemenL of Lhe offense ls knowledge on Lhe parL of Lhe maker or
drawer of Lhe check of Lhe lnsufflclency of hls funds ln or credlL wlLh Lhe bank Lo
cover Lhe check upon lLs presenLmenL Slnce Lhls lnvolves a sLaLe of mlnd dlfflculL Lo
esLabllsh Lhe sLaLuLe lLself creaLes a ptlmo focle presumpLlon of such knowledge
where paymenL of Lhe check ls refused by Lhe drawee because of lnsufflclenL funds
ln or credlL wlLh such bank when presenLed wlLhln nlneLy (90) days from Lhe daLe of
Lhe check
3
1o mlLlgaLe Lhe harshness of Lhe law ln lLs appllcaLlon Lhe sLaLuLe
provldes LhaL such presumpLlon shall noL arlse lf wlLhln flve (3) banklng days from
recelpL of Lhe noLlce of dlshonor Lhe maker or drawer makes arrangemenLs for
paymenL of Lhe check by Lhe bank or pays Lhe holder Lhe amounL of Lhe check
AnoLher provlslon of Lhe sLaLuLe also ln Lhe naLure of a rule of evldence provldes
LhaL Lhe lnLroducLlon ln evldence of Lhe unpald and dlshonored check wlLh Lhe
drawee banks refusal Lo pay sLamped or wrlLLen Lhereon or aLLached LhereLo
glvlng Lhe reason Lherefor shall consLlLuLe ptlmo focle proof of Lhe maklng or
lssuance of sald check and Lhe due presenLmenL Lo Lhe drawee for paymenL and
Lhe dlshonor Lhereof for Lhe reason wrlLLen sLamped or aLLached by Lhe drawee
on such dlshonored check
6

1he presumpLlons belng merely prlma facle lL ls open Lo Lhe accused of course Lo
presenL proof Lo Lhe conLrary Lo overcome Lhe sald presumpLlons
ll
8 22 ls almed aL puLLlng a sLop Lo or curblng Lhe pracLlce of lssulng checks LhaL are
worLhless le checks LhaL end up belng re[ecLed or dlshonored for paymenL 1he
pracLlce as dlscussed laLer ls proscrlbed by Lhe sLaLe because of Lhe ln[ury lL causes
Lo L publlc lnLeresLs
8efore Lhe enacLmenL of 8 22 provlslons already exlsLed ln our sLaLuLe books
whlch penallze Lhe lssuance of bounclng or rubber checks Crlmlnal law has dealLh
wlLh Lhe problem wlLhln Lhe conLexL of crlmes agalnsL properLy punlshed as
esLafa or crlmes lnvolvlng fraud and decelL 1he focus of Lhese penal provlslons ls
on Lhe damage caused Lo Lhe properLy rlghLs of Lhe vlcLlm
1he enal Code of Spaln whlch was ln force ln Lhe hlllpplnes from 1887 unLll lL was
replaced by Lhe 8evlsed enal Code ln 1932 conLalned provlslons penallzlng
among oLhers Lhe acL of defraudlng anoLher Lhrough false preLenses ArL 333
punlshed a person who defrauded anoLher by falsely preLendlng Lo possess any
power lnfluence quallflcaLlon properLy credlL agency or buslness or by means of
slmllar decelL AlLhough no expllclL menLlon was made Lhereln regardlng checks
Lhls provlslon was deemed Lo cover wlLhln lLs amblL Lhe lssuance of worLhless or
bogus checks ln exchange for money
7

ln 1926 an amendmenL was lnLroduced by Lhe hlllpplne LeglslaLure whlch added
a new clause (paragraph 10) Lo ArLlcle 333 of Lhe old enal Code Lhls Llme referrlng
ln expllclL Lerms Lo Lhe lssuance of worLhless checks 1he amendmenL penallzed any
person who 1) lssues a check ln paymenL of a debL or for oLher valuable
conslderaLlon knowlng aL Lhe Llme of lLs lssuance LhaL he does noL have sufflclenL
funds ln Lhe bank Lo cover lLs amounL or 2) mallclously slgns Lhe check dlfferenLly
from hls auLhenLlc slgnaLure as reglsLered aL Lhe bank ln order LhaL Lhe laLLer would
refuse Lo honor lL or 3) lssues a posLdaLed check and aL Lhe daLe seL for lLs
paymenL does noL have sufflclenL deposlL Lo cover Lhe same
8

ln 1932 as already adverLed Lo Lhe old enal Code was superseded by Lhe 8evlsed
enal Code
9
1he above provlslons ln amended form were lncorporaLed ln ArLlcle
313 of Lhe 8evlsed enal Code deflnlng Lhe crlme of esLafa 1he revlsed LexL of Lhe
provlslon read as follows
ArL 313 Swlndllng (esLafa)Any person who shall defraud anoLher by any of Lhe
means menLloned herelnbelow shall be punlshed by
xxx xxx xxx
2 8y means of any of Lhe followlng false preLenses or fraudulenL acLs execuLed
prlor Lo or slmulLaneously wlLh Lhe commls slon of Lhe fraud
(a) 8y uslng flcLlLlous name or falsely preLendlng Lo possess power lnfluence
quallflcaLlons properLy credlL agency buslness or lmaglnary LransacLlons or by
means of oLher slmllar decelLs
xxx xxx xxx
(d) 8y posLdaLlng a check or lssulng a check ln paymenL of an obllgaLlon Lhe
offender knowlng LhaL aL Lhe Llme he had no funds ln Lhe bank or Lhe funds
deposlLed by hlm were noL sufflclenL Lo cover Lhe amounL of Lhe cheek wlLhouL
lnformlng Lhe payee of such clrcumsLances
1he scope of paragraph 2 (d) however was deemed Lo exclude checks lssued ln
paymenL of preexlsLlng obllgaLlons
10
1he raLlonale of Lhls lnLerpreLaLlon ls LhaL ln
esLafa Lhe decelL causlng Lhe defraudaLlon musL be ptlot to ot slmoltooeoos wlLh
Lhe commlsslon of Lhe fraud ln lssulng a check as paymenL for a preexlsLlng debL
Lhe drawer does noL derlve any maLerlal beneflL ln reLurn or as conslderaLlon for lLs
lssuance Cn Lhe parL of Lhe payee he had already parLed wlLh hls money or
properLy before Lhe check ls lssued Lo hlm hence he ls noL defrauded by means of
any prlor or slmulLaneous decelL perpeLraLed on hlm by Lhe drawer of Lhe
check
WlLh Lhe lnLenLlon of remedylng Lhe slLuaLlon and solvlng Lhe problem of how Lo
brlng checks lssued ln paymenL of preexlsLlng debLs wlLhln Lhe amblL of ArL 313
an amendmenL was lnLroduced by Lhe Congress of Lhe hlllpplnes ln 1967
11
whlch
was enacLed lnLo law as 8epubllc AcL no 4883 revlslng Lhe aforesald provlso Lo
read as follows
(d) 8y posLdaLlng a check or lssulng a check ln paymenL of an obllgaLlon when Lhe
offender had no funds ln Lhe bank or hls funds deposlLed Lhereln were noL
sufflclenL Lo cover Lhe amounL of Lhe check 1he fallure of Lhe drawer of Lhe check
Lo deposlL Lhe amounL necessary Lo cover hls check wlLhln Lhree (3) days from
recelpL of noLlce from Lhe bank and/or Lhe payee or holder LhaL sald check has been
177

dlshonored for lack or lnsufflclency of funds shall be puma facle evldence of decelL
consLlLuLlng false preLense or fraudulenL acL
Powever Lhe adopLlon of Lhe amendmenL dld noL alLer Lhe slLuaLlon maLerlally A
dlvlded CourL held ln leople vs 5oblo It
12
LhaL ArLlcle 313 as amended by
8epubllc AcL 4883 does noL cover checks lssued ln paymenL of preexlsLlng
obllgaLlons agaln relylng on Lhe concepL underlylng Lhe crlme of esLafa Lhrough
false preLenses or decelLwhlch ls LhaL Lhe decelL or false preLense musL be prlor
Lo or slmulLaneous wlLh Lhe commlsslon of Lhe fraud
Slnce sLaLlsLlcally lL had been shown LhaL Lhe greaLer bulk of dlshonored checks
conslsLed of Lhose lssued ln paymenL of preexlsLlng debLs
13
Lhe amended
provlslon evldenLly falled Lo cope wlLh Lhe real problem and Lo deal effecLlvely wlLh
Lhe evll LhaL lL was lnLended Lo ellmlnaLe or mlnlmlze
WlLh Lhe foregolng facLual and legal anLecedenLs as a backdrop Lhe Lhen lnLerlm
8aLasan confronLed Lhe problem squarely lL opLed Lo Lake a bold sLep and declded
Lo enacL a law deallng wlLh Lhe problem of bounclng or worLhless checks wlLhouL
aLLachlng Lhe laws umblllcal cord Lo Lhe exlsLlng penal provlslons on esLafa 8 22
addresses Lhe problem dlrecLly and fronLally and makes Lhe acL of lssulng a
worLhless check molom ptoblbltom
14

1he quesLlon now arlses ls 8 22 a valld law?
revlous efforLs Lo deal wlLh Lhe problem of bounclng checks wlLhln Lhe amblL of
Lhe law on esLafa dld noL evoke any consLlLuLlonal challenge ln conLrasL 8 22 was
challenged prompLly
1hose who quesLlon Lhe consLlLuLlonallLy of 8 22 lnslsL LhaL (1) lL offends Lhe
consLlLuLlonal provlslon forblddlng lmprlsonmenL for debL (2) lL lmpalrs freedom of
conLracL (3) lL conLravenes Lhe equal proLecLlon clause (4) lL unduly delegaLes
leglslaLlve and execuLlve powers and (3) lLs enacLmenL ls flawed ln LhaL durlng lLs
passage Lhe lnLerlm 8aLasan vlolaLed Lhe consLlLuLlonal provlslon prohlblLlng
amendmenLs Lo a blll on 1hlrd 8eadlng
1he consLlLuLlonal challenge Lo 8 22 posed by peLlLloners deserves a searchlng and
Lhorough scruLlny and Lhe mosL dellberaLe conslderaLlon by Lhe CourL lnvolvlng as
lL does Lhe exerclse of whaL has been descrlbed as Lhe hlghesL and mosL dellcaLe
funcLlon whlch belongs Lo Lhe [udlclal deparLmenL of Lhe governmenL
13

As we enLer upon Lhe Lask of passlng on Lhe valldlLy of an acL of a coequal and
coordlnaLe branch of Lhe governmenL we need noL be remlnded of Lhe Llme
honored prlnclple deeply lngralned ln our [urlsprudence LhaL a sLaLuLe ls presumed
Lo be valld Lvery presumpLlon musL be lndulged ln favor of lLs consLlLuLlonallLy
1hls ls noL Lo say LhaL we approach our Lask wlLh dlffldence or LlmldlLy Where lL ls
clear LhaL Lhe leglslaLure has oversLepped Lhe llmlLs of lLs auLhorlLy under Lhe
consLlLuLlon we should noL heslLaLe Lo wleld Lhe axe and leL lL fall heavlly as fall lL
musL on Lhe offendlng sLaLuLe
lll
Among Lhe consLlLuLlonal ob[ecLlons ralsed agalnsL 8 22 Lhe mosL serlous ls Lhe
alleged confllcL beLween Lhe sLaLuLe and Lhe consLlLuLlonal provlslon forblddlng
lmprlsonmenL for debL lL ls conLended LhaL Lhe sLaLuLe runs counLer Lo Lhe
lnhlblLlon ln Lhe 8lll of 8lghLs whlch sLaLes no person shall be lmprlsoned for debL
or nonpaymenL of a poll Lax
16
eLlLloners lnslsL LhaL slnce Lhe offense under 8
22 ls consummaLed only upon Lhe dlshonor or nonpaymenL of Lhe check when lL ls
presenLed Lo Lhe drawee bank Lhe sLaLuLe ls really a bad debL law raLher Lhan a
bad check law WhaL lL punlshes ls Lhe nonpaymenL of Lhe check noL Lhe acL of
lssulng lL 1he sLaLuLe lL ls clalmed ls noLhlng more Lhan a velled devlce Lo coerce
paymenL of a debL under Lhe LhreaL of penal sancLlon
llrsL of all lL ls essenLlal Lo grasp Lhe essence and scope of Lhe consLlLuLlonal
lnhlblLlon lnvoked by peLlLloners vlewed ln lLs hlsLorlcal conLexL Lhe consLlLuLlonal
prohlblLlon agalnsL lmprlsonmenL for debL ls a safeguard LhaL evolved gradually
durlng Lhe early parL of Lhe nlneLeenLh cenLury ln Lhe varlous sLaLes of Lhe Amerlcan
unlon as a resulL of Lhe peoples revulslon aL Lhe cruel and lnhumane pracLlce
sancLloned by common law whlch permlLLed credlLors Lo cause Lhe lncarceraLlon of
debLors who could noL pay Lhelr debLs AL common law money [udgmenLs arlslng
from acLlons for Lhe recovery of a debL or for damages from breach of a conLracL
could be enforced agalnsL Lhe person or body of Lhe debLor by wrlL of caplas ad
sotlsfocleoJom 8y means of Lhls wrlL a debLor could be selzed and lmprlsoned aL
Lhe lnsLance of Lhe credlLor unLll he makes Lhe saLlsfacLlon awarded As a
consequence of Lhe popular ground swell agalnsL such a barbarous pracLlce
provlslons forblddlng lmprlsonmenL for debL came Lo be generally enshrlned ln Lhe
consLlLuLlons of varlous sLaLes of Lhe unlon
17

1hls humanlLarlan provlslon was LransporLed Lo our shores by Lhe Amerlcans aL Lhe
Lurn of L0he cenLury and embodled ln our organlc laws
18
LaLer our fundamenLal
law ouLlawed noL only lmprlsonmenL for debL buL also Lhe lnfamous pracLlce
naLlve Lo our shore of Lhrowlng people ln [all for nonpaymenL of Lhe ceJolo or poll
Lax
19

1he reach and scope of Lhls consLlLuLlonal safeguard have been Lhe sub[ecL of
[udlclal deflnlLlon boLh by our Supreme CourL
20
and by Amerlcan SLaLe courLs
21

Mr !usLlce Malcolm speaklng for Lhe 5opteme coott lo Cooowoy vs Ooeeo
22

sLaLed 1he debL lnLended Lo be covered by Lhe consLlLuLlonal guaranLy has a
welldeflned meanlng Crganlc provlslons rellevlng from lmprlsonmenL for debL
were lnLended Lo prevenL commlLmenL of debLors Lo prlson for llablllLles arlslng
from acLlons ex coottocto 1he lnhlblLlon was never meanL Lo lnclude damages
arlslng ln acLlons ex Jellcto for Lhe reason LhaL damages recoverable Lhereln do noL
arlse from any conLracL enLered lnLo beLween Lhe parLles buL are lmposed upon Lhe
defendanL for Lhe wrong he has done and are consldered as punlshmenL nor Lo
flnes and penalLles lmposed by Lhe courLs ln crlmlnal proceedlngs as punlshmenLs
for crlme
178

1he law lnvolved ln Canaway was noL a crlmlnal sLaLuLe buL Lhe Code of rocedure
ln Clvll AcLlons (1909) whlch auLhorlzed Lhe arresL of Lhe defendanL ln a clvll case on
grounds akln Lo Lhose whlch [usLlfy Lhe lssuance of a wrlL of aLLachmenL under our
presenL 8ules of CourL such as lmmlnenL deparLure of Lhe defendanL from Lhe
hlllpplnes wlLh lnLenL Lo defraud hls credlLors or concealmenL removal or
dlsposlLlon of properLles ln fraud of credlLors eLc 1he CourL ln LhaL case declared
Lhe deLenLlon of Lhe defendanL unlawful belng vlolaLlve of Lhe consLlLuLlonal
lnhlblLlon agalnsL lmprlsonmenL for debL and ordered hls release 1he CourL
however refralned from declarlng Lhe sLaLuLory provlslon ln quesLlon
unconsLlLuLlonal
Closer Lo Lhe case aL bar ls leople v veto keyes
23
whereln a sLaLuLory provlslon
whlch made lllegal and punlshable Lhe refusal of an employer Lo pay when he can
do so Lhe salarles of hls employees or laborers on Lhe flfLeenLh or lasL day of every
monLh or on SaLurday every week was challenged for belng vlolaLlve of Lhe
consLlLuLlonal prohlblLlon agalnsL lmprlsonmenL for debL 1he consLlLuLlonallLy of
Lhe law ln quesLlon was upheld by Lhe CourL lL belng wlLhln Lhe auLhorlLy of Lhe
leglslaLure Lo enacL such a law ln Lhe exerclse of Lhe pollce power lL was held LhaL
one of Lhe purposes of Lhe law ls Lo suppress posslble abuses on Lhe parL of Lhe
employers who hlre laborers or employees wlLhouL paylng Lhem Lhe salarles agreed
upon for Lhelr servlces Lhus causlng Lhem flnanclal dlfflculLles 1he law was vlewed
noL as a measure Lo coerce paymenL of an obllgaLlon alLhough obvlously such could
be lLs effecL buL Lo banlsh a pracLlce consldered harmful Lo publlc welfare
lv
Pas 8 22 Lransgressed Lhe consLlLuLlonal lnhlblLlon agalnsL lmprlsonmenL for debL?
1o answer Lhe quesLlon lL ls necessary Lo examlne whaL Lhe sLaLuLe prohlblLs and
punlshes as an offense ls lL Lhe fallure of Lhe maker of Lhe check Lo pay a debL? Cr
ls lL Lhe maklng and lssuance of a worLhless check ln paymenL of a debL? WhaL ls Lhe
gravamen of Lhe offense? 1hls quesLlon lles aL Lhe hearL of Lhe lssue before us
1he gravamen of Lhe offense punlshed by 8 22 ls Lhe acL of maklng and lssulng a
worLhless check or a check LhaL ls dlshonored upon lLs presenLaLlon for paymenL lL
ls noL Lhe nonpaymenL of an obllgaLlon whlch Lhe law punlshes 1he law ls noL
lnLended or deslgned Lo coerce a debLor Lo pay hls debL 1he LhrusL of Lhe law ls Lo
prohlblL under paln of penal sancLlons Lhe maklng of worLhless checks and puLLlng
Lhem ln clrculaLlon 8ecause of lLs deleLerlous effecLs on Lhe publlc lnLeresL Lhe
pracLlce ls proscrlbed by Lhe law 1he law punlshes Lhe acL noL as an offense agalnsL
properLy buL an offense agalnsL publlc order
AdmlLLedly Lhe dlsLlncLlon may seem aL flrsL blush Lo appear eluslve and dlfflculL Lo
concepLuallze 8uL preclsely ln Lhe fallure Lo percelve Lhe vlLal dlsLlncLlon lles Lhe
error of Lhose who challenge Lhe valldlLy of 8 22
lL may be consLlLuLlonally lmpermlsslble for Lhe leglslaLure Lo penallze a person for
nonpaymenL of a debL ex coottocto 8uL cerLalnly lL ls wlLhln Lhe prerogaLlve of Lhe
lawmaklng body Lo proscrlbe cerLaln acLs deemed pernlclous and lnlmlcal Lo publlc
welfare AcLs molo ln se are noL Lhe only acLs whlch Lhe law can punlsh An acL may
noL be consldered by socleLy as lnherenLly wrong hence noL molom ln se buL
because of Lhe harm LhaL lL lnfllcLs on Lhe communlLy lL can be ouLlawed and
crlmlnally punlshed as molom ptoblbltom 1he sLaLe can do Lhls ln Lhe exerclse of lLs
pollce power
1he pollce power of Lhe sLaLe has been descrlbed as Lhe mosL essenLlal lnslsLenL
and llllmlLable of powers whlch enables lL Lo prohlblL all Lhlngs hurLful Lo Lhe
comforL safeLy and welfare of socleLy
24
lL ls a power noL emanaLlng from or
conferred by Lhe consLlLuLlon buL lnherenL ln Lhe sLaLe plenary sulLably vague
and far from preclsely deflned rooLed ln Lhe concepLlon LhaL man ln organlzlng Lhe
sLaLe and lmposlng upon Lhe governmenL llmlLaLlons Lo safeguard consLlLuLlonal
rlghLs dld noL lnLend Lhereby Lo enable lndlvldual clLlzens or group of clLlzens Lo
obsLrucL unreasonably Lhe enacLmenL of such saluLary measures Lo ensure
communal peace safeLy good order and welfare
23

1he enacLmenL of 8 22 ls a declaraLlon by Lhe leglslaLure LhaL as a maLLer of publlc
pollcy Lhe maklng and lssuance of a worLhless check ls deemed publlc nulsance Lo
be abaLed by Lhe lmposlLlon of penal sancLlons
lL ls noL for us Lo quesLlon Lhe wlsdom or lmpollcy of Lhe sLaLuLe lL ls sufflclenL LhaL
a reasonable nexus exlsLs beLween means and end Conslderlng Lhe facLual and
legal anLecedenLs LhaL led Lo Lhe adopLlon of Lhe sLaLuLe lL ls noL dlfflculL Lo
undersLand Lhe publlc concern whlch prompLed lLs enacLmenL lL had been reporLed
LhaL Lhe approxlmaLe value of bounclng checks per day was close Lo 200 mllllon
pesos and LhereafLer when overdrafLs were banned by Lhe CenLral 8ank lL
averaged beLween 30 mlnlon Lo 80 mllllon pesos a day
26

8y deflnlLlon a check ls a blll of exchange drawn on a bank and payable on demand
27
lL ls a wrlLLen order on a bank purporLlng Lo be drawn agalnsL a deposlL of funds
for Lhe paymenL of all evenLs of a sum of money Lo a cerLaln person Lhereln named
or Lo hls order or Lo cash and payable on demand
28
unllke a promlssory noLe a
check ls noL a mere underLaklng Lo pay an amounL of money lL ls an order
addressed Lo a bank and parLakes of a represenLaLlon LhaL Lhe drawer has funds on
deposlL agalnsL whlch Lhe check ls drawn sufflclenL Lo ensure paymenL upon lLs
presenLaLlon Lo Lhe bank 1here ls Lherefore an elemenL of cerLalnLy or assurance
LhaL Lhe lnsLrumenL wlg be pald upon presenLaLlon lor Lhls reason checks have
become wldely accepLed as a medlum of paymenL ln Lrade and commerce
AlLhough noL legal Lender checks have come Lo be percelved as convenlenL
subsLlLuLes for currency ln commerclal and flnanclal LransacLlons 1he basls or
foundaLlon of such percepLlon ls confldence lf such confldence ls shakes Lhe
usefulness of checks as currency subsLlLuLes would be greaLly dlmlnlshed or may
become nlL Any pracLlce Lherefore Lendlng Lo desLroy LhaL confldence should be
deLerred for Lhe prollferaLlon of worLhless checks can only creaLe havoc ln Lrade
clrcles and Lhe banklng communlLy
179

8ecenL sLaLlsLlcs of Lhe CenLral 8ank show LhaL oneLhlrd of Lhe enLlre money supply
of Lhe counLry roughly LoLalllng 323 bllllon conslsLs of peso demand deposlLs Lhe
remalnlng Lwo
29
1hese de deposlL Lhlrds conslsLs of currency ln clrculaLlon ma
deposlLs ln Lhe banks consLlLuLe Lhe funds agalnsL whlch among oLhers commerclal
papers llke checks are drawn 1he magnlLude of Lhe amounL lnvolved amply
[usLlfles Lhe leglLlmaLe concern of Lhe sLaLe ln preservlng Lhe lnLegrlLy of Lhe
banklng sysLem lloodlng Lhe sysLem wlLh worLhless checks ls llke pourlng garbage
lnLo Lhe bloodsLream of Lhe naLlons economy
1he effecLs of Lhe lssuance of a worLhless check Lranscends Lhe prlvaLe lnLeresLs of
Lhe parLles dlrecLly lnvolved ln Lhe LransacLlon and Louches Lhe lnLeresLs of Lhe
communlLy aL large 1he mlschlef lL creaLes ls noL only a wrong Lo Lhe payee or
holder buL also an ln[ury Lo Lhe publlc 1he harmful pracLlce of puLLlng valueless
commerclal papers ln clrculaLlon mulLlplled a Lhousand fold can very wen polluLe
Lhe channels of Lrade and commerce ln[ure Lhe banklng sysLem and evenLually hurL
Lhe welfare of socleLy and Lhe publlc lnLeresL As apLly sLaLed
30

1he check flasher does a greaL deal more Lhan conLracL a debL he shakes Lhe
plllars of buslness and Lo my mlnd lL ls a mlsLaken charlLy of [udgmenL Lo place hlm
ln Lhe same caLegory wlLh Lhe honesL man who ls unable Lo pay hls debLs and for
whom Lhe consLlLuLlonal lnhlblLlon agalnsL lmprlsonmenL for debL excepL ln cases
of fraud was lnLended as a shleld and noL a sword
ln sum we flnd Lhe enacLmenL of 8 22 a valld exerclse of Lhe pollce power and ls
noL repugnanL Lo Lhe consLlLuLlonal lnhlblLlon agalnsL lmprlsonmenL for debL
1hls CourL ls noL unaware of Lhe confllcLlng [urlsprudence obLalnlng ln Lhe varlous
sLaLes of Lhe unlLed SLaLes on Lhe consLlLuLlonallLy of Lhe worLhless check acLs
31

lL ls needless Lo warn LhaL forelgn [urlsprudence musL be Laken wlLh abundanL
cauLlon A coveot Lo be observed ls LhaL subsLanLlal dlfferences exlsL beLween our
sLaLuLe and Lhe worLhless check acLs of Lhose sLaLes where Lhe [urlsprudence have
evolved Cne Lhlng Lo remember ls LhaL 8 22 was noL llfLed bodlly from any
exlsLlng sLaLuLe lurLhermore we have Lo conslder LhaL [udlclal declslons musL be
read ln Lhe conLexL of Lhe facLs and Lhe law lnvolved and ln a broader sense of Lhe
soclal economlc and pollLlcal envlronmenLln shorL Lhe mllleuunder whlch Lhey
were made We recognlze Lhe wlsdom of Lhe old saylng LhaL whaL ls sauce for Lhe
goose may noL be sauce for Lhe gander
As sLaLed elsewhere pollce power ls a dynamlc force LhaL enables Lhe sLaLe Lo meeL
Lhe exlgencles of changlng Llmes 1here are occaslons when Lhe pollce power of Lhe
sLaLe may even overrlde a consLlLuLlonal guaranLy lor example Lhere have been
cases whereln we held LhaL Lhe consLlLuLlonal provlslon on nonlmpalrmenL of
conLracLs musL yleld Lo Lhe pollce power of Lhe sLaLe
32
WheLher Lhe pollce power
may overrlde Lhe consLlLuLlonal lnhlblLlon agalnsL lmprlsonmenL for debL ls an lssue
we do noL have Lo address 1hls brldge has noL been reached so Lhere ls no
occaslon Lo cross lL
We hold LhaL 8 22 does noL confllcL wlLh Lhe consLlLuLlonal lnhlblLlon agalnsL
lmprlsonmenL for debL
v
We need noL deLaln ourselves lengLhlly ln Lhe examlnaLlon of Lhe oLher
consLlLuLlonal ob[ecLlons ralsed by peLlLloners some of whlch are raLher fllmsy
We flnd no valld ground Lo susLaln Lhe conLenLlon LhaL 8 22 lmpalrs freedom of
conLracL 1he freedom of conLracL whlch ls consLlLuLlonally proLecLed ls freedom Lo
enLer lnLo lawful conLracLs ConLracLs whlch conLravene publlc pollcy are noL
lawful
33
8esldes we musL bear ln mlnd LhaL checks can noL be caLegorlzed as mere
conLracLs lL ls a commerclal lnsLrumenL whlch ln Lhls modem day and age has
become a convenlenL subsLlLuLe for money lL forms parL of Lhe banklng sysLem and
Lherefore noL enLlrely free from Lhe regulaLory power of Lhe sLaLe
nelLher do we flnd subsLance ln Lhe clalm LhaL Lhe sLaLuLe ln quesLlon denles equal
proLecLlon of Lhe laws or ls dlscrlmlnaLory slnce lL penallzes Lhe drawer of Lhe
check buL noL Lhe payee lL ls conLended LhaL Lhe payee ls [usL as responslble for
Lhe crlme as Lhe drawer of Lhe check slnce wlLhouL Lhe lndlspensable parLlclpaLlon
of Lhe payee by hls accepLance of Lhe check Lhere would be no crlme 1hls
argumenL ls LanLamounL Lo saylng LhaL Lo glve equal proLecLlon Lhe law should
punlsh boLh Lhe swlndler and Lhe swlndled 1he peLlLloners posLure lgnores Lhe
wellaccepLed meanlng of Lhe clause equal proLecLlon of Lhe laws 1he clause
does noL preclude classlflcaLlon of lndlvlduals who may be accorded dlfferenL
LreaLmenL under Lhe law as long as Lhe classlflcaLlon ls no unreasonable or
arblLrary
34

lL ls also suggesLed LhaL 8 22 consLlLuLes undue or lmproper delegaLlon of
leglslaLlve powers on Lhe Lheory LhaL Lhe offense ls noL compleLed by Lhe sole acL
of Lhe maker or drawer buL ls made Lo depend on Lhe wlll of Lhe payee lf Lhe payee
does noL presenL Lhe check Lo Lhe bank for paymenL buL lnsLead keeps lL Lhere
would be no crlme 1he loglc of Lhe argumenL sLreLches Lo absurdlLy Lhe meanlng of
delegaLlon of leglslaLlve power WhaL cannoL be delegaLed ls Lhe power Lo
leglslaLe or Lhe power Lo make laws
33
whlch means as applled Lo Lhe presenL
case Lhe power Lo deflne Lhe offense soughL Lo be punlshed and Lo prescrlbe Lhe
penalLy 8y no sLreLch of loglc or lmaglnaLlon can lL be sald LhaL Lhe power Lo deflne
Lhe crlme and prescrlbe Lhe penalLy Lherefor has been ln any manner delegaLed Lo
Lhe payee nelLher ls Lhere any provlslon ln Lhe sLaLuLe LhaL can be consLrued no
maLLer how remoLely as undue delegaLlon of execuLlve power 1he suggesLlon LhaL
Lhe sLaLuLe unlawfully delegaLes lLs enforcemenL Lo Lhe offended parLy ls
farfeLched
LasLly Lhe ob[ecLlon has been ralsed LhaL SecLlon 9 (2) of ArLlcle vll of Lhe 1973
ConsLlLuLlon was vlolaLed by Lhe leglslaLlve body when lL enacLed 8 22 lnLo law
1hls consLlLuLlonal provlslon prohlblLs Lhe lnLroducLlon of amendmenLs Lo a blll
durlng Lhe 1hlrd 8eadlng lL ls clalmed LhaL durlng lLs 1hlrd 8eadlng Lhe blll whlch
evenLually became 8 22 was amended ln LhaL Lhe LexL of Lhe second paragraph of
180

SecLlon 1 of Lhe blll as adopLed on Second 8eadlng was alLered or changed ln Lhe
prlnLed LexL of Lhe blll submlLLed for approval on 1hlrd 8eadlng
A careful revlew of Lhe record of Lhe proceedlngs of Lhe lnLerlm 8aLasan on Lhls
maLLer shows LhaL lndeed Lhere was some confuslon among 8aLasan Members on
whaL was Lhe exacL LexL of Lhe paragraph ln quesLlon whlch Lhe body approved on
Second 8eadlng
36
arL of Lhe confuslon was due apparenLly Lo Lhe facL LhaL durlng
Lhe dellberaLlons on Second 8eadlng (Lhe amendmenL perlod) amendmenLs were
proposed orally and approved by Lhe body or accepLed by Lhe sponsor hence some
members mlghL noL have goLLen Lhe compleLe LexL of Lhe provlslons of Lhe blll as
amended and approved on Second 8eadlng Powever lL ls clear from Lhe records
LhaL Lhe LexL of Lhe second paragraph of SecLlon 1 of 8 22 ls Lhe LexL whlch was
acLually approved by Lhe body on Second 8eadlng on lebruary 7 1979 as reflecLed
ln Lhe approved MlnuLes for LhaL day ln any evenL before Lhe bln was submlLLed
for flnal approval on 1hlrd 8eadlng Lhe lnLerlm 8aLasan creaLed a Speclal
CommlLLee Lo lnvesLlgaLe Lhe maLLer and Lhe CommlLLee ln lLs reporL whlch was
approved by Lhe enLlre body on March 22 1979 sLaLed LhaL Lhe clause ln quesLlon
was an auLhorlzed amendmenL of Lhe blll and Lhe prlnLed copy Lhereof reflecLs
accuraLely Lhe provlslon ln quesLlon as approved on Second 8eadlng
37
We
Lherefore flnd no merlL ln Lhe peLlLloners clalm LhaL ln Lhe enacLmenL of 8 22 Lhe
provlslons of SecLlon 9 (2) of ArLlcle vlll of Lhe 1973 ConsLlLuLlon were vlolaLed
WPL8LlC8L [udgmenL ls rendered granLlng Lhe peLlLlon ln C8 no 73789 and
seLLlng aslde Lhe order of Lhe respondenL !udge daLed AugusL 19 1986 1he
peLlLlons ln C8 nos 63419 6683942 71634 7432423 7312249 7381213 and
7376367 are hereby dlsmlssed and Lhe Lemporary resLralnlng order lssued ln C8
nos 7432423 ls llfLed WlLh cosLs agalnsL prlvaLe peLlLloners
SC C8uL8Lu
1eebookee cI letlo letooo Notvoso Meleoclonetteto


Gk No LS0908 Ianuary 31 1984
MAk CCNCL9CICN 8AU1IS1A IUINIC

ILkNANDC
1he valldlLy of an energy conservaLlon measure LeLLer of lnsLrucLlon no 869
lssued on May 31 1979 Lhe response Lo Lhe proLracLed oll crlsls LhaL daLes back
Lo 1974 ls puL ln lssue ln Lhls prohlblLlon proceedlng flled by peLlLloners spouses
Mary Concepclon 8auLlsLa and Lnrlque u 8auLlsLa for belng allegedly vlolaLlve of
Lhe due process and equal proLecLlon guaranLees 1 of Lhe ConsLlLuLlon 1he use of
prlvaLe moLor vehlcles wlLh P and LP plaLes on weekends and holldays was banned
from 1200 am SaLurday mornlng Lo 300 am Monday mornlng or 100 am of
Lhe hollday Lo 300 am of Lhe day afLer Lhe hollday
2
MoLor vehlcles of Lhe
followlng classlflcaLlons are exempLed (a) S (Servlce) (b) 1 (1ruck) (e) uL
(ulplomaLlc) (d) CC (Consular Corps) (e) 1C (1ourlsL Cars)
3
ursuanL LhereLo
respondenL Alfredo L !ulnlo Lhen MlnlsLer of ubllc Works 1ransporLaLlon and
CommunlcaLlons and respondenL 8omeo Ldu Lhen Commlssloner of Land
1ransporLaLlon Commlsslon lssued on !une 11 1979 Memorandum Clrcular no 39
whlch lmposed Lhe penalLles of flne conflscaLlon of vehlcle and cancellaLlon of
reglsLraLlon on owners of Lhe abovespeclfled vehlcles found vlolaLlng such LeLLer
of lnsLrucLlon
4
lL was Lhen alleged by peLlLloners LhaL whlle Lhe purpose for Lhe
lssuance of Lhe LCl 869 ls laudable Lo wlL energy conservaLlon Lhe provlslon
bannlng Lhe use of P and LP vehlcles ls unfalr dlscrlmlnaLory amounLlng Lo an
arblLrary classlflcaLlon and Lhus ln conLravenLlon of Lhe equal proLecLlon clause
S

Moreover for Lhem such LeLLer of lnsLrucLlon ls a denlal of due process more
speclflcally of Lhelr rlghL Lo use and en[oy Lhelr prlvaLe properLy and of Lhelr
freedom Lo Lravel and hold famlly gaLherlngs reunlons and ouLlngs on weekends
and holldays lnvlLlng aLLenLlon Lo Lhe facL LhaL oLhers noL lncluded ln Lhe ban
en[oylng unresLrlcLed freedom
6
lL would follow so Lhey conLend LhaL
Memorandum Clrcular no 39 lmposlng penalLles of flne conflscaLlon of Lhe vehlcle
and cancellaLlon of llcense ls llkewlse unconsLlLuLlonal for belng vlolaLlve of Lhe
docLrlne of undue delegaLlon of leglslaLlve power
7
lL ls Lo be noLed LhaL such
Memorandum Clrcular does noL lmpose Lhe penalLy of conflscaLlon buL merely LhaL
of lmpoundlng flne and for Lhe Lhlrd offense LhaL of cancellaLlon of cerLlflcaLe of
reglsLraLlon and for Lhe resL of Lhe year or for nlneLy days whlchever ls longer
1hls CourL gave due course Lo Lhe peLlLlon requlrlng respondenL Lo answer 1here
was admlsslon of Lhe facLs as subsLanLlally alleged excepL as prevlously noLed LhaL
Lhe ban sLarLs aL 1200 am raLher Lhan 100 am of a SaLurday or of a hollday and
as Lo Lhe menLlon of a Wlllys kalser [eep belng reglsLered ln Lhe name of a cerLaln
1ereslLa urblna abouL whlch respondenLs had no knowledge 1here was a denlal of
Lhe allegaLlons LhaL Lhe classlflcaLlon of vehlcles lnLo heavy P and exLra heavy (LP)
on Lhe oLher hand and llghL and banLam on Lhe oLher hand was vlolaLlve of equal
proLecLlon and Lhe regulaLlon as Lo Lhe use of Lhe former cars on Lhe daLes speclfled
a Lransgresslon of due process 1he answer llkewlse denled LhaL Lhere was an undue
delegaLlon of leglslaLlve power reference belng made Lo Lhe Land 1ransporLaLlon
and 1rafflc Code
8
1here was also a procedural ob[ecLlon ralsed namely LhaL whaL
ls soughL amounLs aL mosL Lo an advlsory oplnlon raLher Lhan an a[udlcaLlon of a
case or conLroversy
eLlLloners flled a moLlon Lo be allowed Lo reply Lo Lhe answer lL was granLed 1he
reply conslderlng lLs exhausLlve characLer servlng as lLs memorandum sLressed
anew whaL lL emphaslzed as Lhe arblLrary unreasonable and oppresslve aspecLs of
Lhe challenged LeLLer of lnsLrucLlon and Memorandum Clrcular no 39 lL dlspuLed
whaL lL characLerlzed as an erroneous and arblLrary presumpLlon LhaL heavy car
owners unnecessarlly use and Lherefore wasLe gasollne whenever Lhey drlve Lhelr
cars on weekends and holldays
9
lL sLlgmaLlzed Lhe ban as defeaLlng lLs avowed
purpose ln Lhe case of Lhe affluenL who own noL only heavy llmouslnes buL also
181

many small cars as Lhey may be compelled Lo use aL leasL Lwo small cars 10
referred Lo Lhe hlgh cosL of Laxls or oLher publlc LransporLs for Lhose noL able Lo
afford expenslve small cars posslbly only one heavy and posslble old model 11
clLed Lhe case of many elghL cyllnder vehlcles whlch because of Lhelr welghL have
been reglsLered as llghL buL ln facL consume more or as much gasollne as Lhe
banned vehlcles 12 1helr concluslon ls LhaL Lhe ban lmposed ln resulL and effecL
ls class leglslaLlon 13
1he parLles were requlred Lo submlL memoranda 8espondenLs dld so buL noL
peLlLloners 1hey relled on Lhelr reply Lo Lhe answer as noLed a raLher
comprehenslve pleadlng lor reasons Lo be seL forLh Lhls CourL holds LhaL Lhe
peLlLlon cannoL prosper
1 llrsL as Lo Lhe procedural ob[ecLlon ln Lhe memorandum for respondenLs one of
Lhe lssues ralsed was wheLher Lhe power of [udlclal revlew may be lnvoked
conslderlng Lhe lnadequacy of Lhe record and Lhe hlghly absLracL and academlc
quesLlons ralsed by Lhe peLlLloners 14 lL ls lnaccuraLe Lo say LhaL Lhe record ls
lnadequaLe lL does noL admlL of doubL LhaL Lhe ban applles Lo peLlLloners who are
Lhe reglsLered owners of an elghL cyllnder 1969 8ulck and Lhe vendees of a slx
cyllnder Wlllys kalser [eep whlch are boLh classlfled as heavy or P 1S 1o LhaL
exLenL Lherefore Lhe enforcemenL of Lhe assalled LeLLer of lnsLrucLlon wlll amounL
Lo a deprlvaLlon of whaL oLherwlse would be a valld exerclse of a properLy rlghL
1hus Lhey fall squarely wlLhln Lhe unchallenged rule as Lo who may ralse a
consLlLuLlonal quesLlon namely Lo quoLe Lhe language of !usLlce Laurel ln Lhe
leadlng case of leople v veto 16 LhaL Lhe person who lmpugns Lhe valldlLy of a
sLaLuLe musL have a personal and subsLanLlal lnLeresL ln Lhe case such LhaL he has
susLalned or wlll susLaln dlrecL ln[ury as a resulL of lLs enforcemenL 17 Moreover
LhaL rule has been conslderably relaxed 18 1he quesLlon Lhen ls nelLher absLracL
nor academlc as conLended by respondenLs
2 1here ls however Lhls formldable obsLacle LhaL confronLs peLlLloners WhaL Lhey
seek ls for Lhls CourL Lo hold LhaL a LeLLer of lnsLrucLlon a regulaLory measure
preclsely enacLed Lo cope wlLh Lhe serlous and grave problem of energy
conservaLlon ls vold on lLs face Such a Lask ls rendered unusually dlfflculL by whaL
has been referred Lo by !usLlce Laurel ln Lhe leadlng case of Aoqoto v lectotol
commlssloo 19 as Lhe presumpLlon of consLlLuLlonallLy and by Lhe same [urlsL ln
Lhe case of leople v veto
20
ln sllghLly dlfferenL words a presumpLlon LhaL such an
acL falls wlLhln consLlLuLlonal llmlLaLlons 1here ls need Lhen for a facLual
foundaLlon of lnvalldlLy ln Lhe language of tmltoMolote notel Motel Opetotloos
Assoclotloo loc v clty Moyot ot Moollo lL admlLs of no doubL Lherefore LhaL Lhere
belng a presumpLlon of valldlLy Lhe necesslLy for evldence Lo rebuL lL ls
unavoldable unless Lhe sLaLuLe or ordlnance ls vold on lLs face whlch ls noL Lhe
case here 1he prlnclple has been nowhere beLLer expressed Lhan ln Lhe leadlng
case of OCotmoo oooq v nottfotJ llte losotooce co where Lhe Amerlcan
Supreme CourL Lhrough !usLlce 8randels Lersely and succlncLly summed up Lhe
maLLer Lhus 1he sLaLuLe here quesLloned deals wlLh a sub[ecL clearly wlLhln Lhe
scope of Lhe pollce power We are asked Lo declare lL vold on Lhe ground LhaL Lhe
speclflc meLhod of regulaLlon prescrlbed ls unreasonable and hence deprlves Lhe
plalnLlff of due process of law As underlylng quesLlons of facL may condlLlon Lhe
consLlLuLlonallLy of leglslaLlon of Lhls characLer Lhe presumpLlon of consLlLuLlonallLy
musL prevall ln Lhe absence of some facLual foundaLlon of record for overLhrowlng
Lhe sLaLuLe
21

3 lL ls Lrue of course LhaL Lhere may be lnsLances where a pollce power measure
may because of lLs arblLrary oppresslve or un[usL characLer be held offenslve Lo
Lhe due process clause and Lherefore may when challenged ln an approprlaLe
legal proceedlng be declared vold on lLs face 1hls ls noL one of Lhem A reclLal of
Lhe whereas clauses of Lhe LeLLer of lnsLrucLlon makes lL clear 1hus Whereas
developmenLs ln Lhe lnLernaLlonal peLroleum supply slLuaLlon conLlnue Lo follow a
Lrend of llmlLed producLlon and splralllng prlces Lhereby precludlng Lhe posslblllLy
of lmmedlaLe rellef ln supplles wlLhln Lhe foreseeable fuLure Whereas Lhe
uncerLalnLy of fuel supply avallablllLy underscores a compelllng need for Lhe
adopLlon of poslLlve measures deslgned Lo lnsure Lhe vlablllLy of Lhe counLrys
economy and susLaln lLs developmenLal growLh Whereas Lo cushlon Lhe effecL of
lncreaslng oll prlces and avold fuel supply dlsrupLlons lL ls lmperaLlve Lo adopL a
program dlrecLed Lowards Lhe [udlclous use of our energy resources complemenLed
wlLh lnLenslfled conservaLlon efforLs and efflclenL uLlllzaLlon Lhereof * * *
22
1haL
ls undenlable ls LhaL Lhe acLlon Laken ls an approprlaLe response Lo a problem LhaL
presses urgenLly for soluLlon lL may noL be Lhe only alLernaLlve buL lLs
reasonableness ls lmmedlaLely apparenL 1hus Lo repeaL subsLanLlve due process
whlch ls Lhe eplLome of reasonableness and falr play ls noL lgnored much less
lnfrlnged
4 ln Lhe lnLerplay beLween such a fundamenLal rlghL and pollce power especlally
so where Lhe assalled governmenLal acLlon deals wlLh Lhe use of ones properLy Lhe
laLLer ls accorded much leeway 1haL ls seLLled law WhaL ls more lL ls good law
uue process Lherefore cannoL be valldly lnvoked As sLressed ln Lhe clLed LrmlLa
MalaLe PoLel declslon 1o hold oLherwlse would be Lo unduly resLrlcL and narrow
Lhe scope of pollce power whlch has been properly characLerlzed as Lhe mosL
essenLlal lnslsLenL and Lhe leasL llmlLable of powers exLendlng as lL does Lo all Lhe
greaL publlc needs lL would be Lo paraphrase anoLher leadlng declslon Lo desLroy
Lhe very purpose of Lhe sLaLe lf lL could be deprlved or allowed lLself Lo be deprlved
of lLs compeLence Lo promoLe publlc healLh publlc morals publlc safeLy and Lhe
general welfare negaLlvely puL pollce power ls LhaL lnherenL and plenary power ln
Lhe SLaLe whlch enables lL Lo prohlblL all LhaL ls hurLful Lo Lhe comforL safeLy and
welfare of socleLy
23

3 1he due process quesLlon havlng been dlsposed of Lhere ls sLlll Lhe ob[ecLlon
based on Lhe equal proLecLlon clause Lo be consldered A governmenLal acL may noL
be offenslve Lo Lhe due process clause buL may run counLer Lo such a guaranLee
182

Such ls Lhe case when Lhere ls no raLlonal basls for Lhe classlflcaLlon followed 1haL
ls Lhe polnL ralsed by peLlLloners lor Lhem Lhere ls no raLlonal [usLlflcaLlon for Lhe
ban belng lmposed on vehlcles classlfled as heavy (P) and exLraheavy (LP) for
preclsely Lhose owned by Lhem fall wlLhln such caLegory 1esLed by Lhe appllcable
sLandard LhaL musL be saLlsfled Lo avold Lhe charge of a denlal of equal proLecLlon
Lhe ob[ecLlon of peLlLloners ls shown Lo be lacklng ln merlL Such a classlflcaLlon on
lLs face cannoL be characLerlzed as an affronL Lo reason A legal norm accordlng Lo
IM 1oosoo co loc vs looJ 1eoote AJmlolsttotloo
24
wheLher embodled ln a
rule prlnclple or sLandard consLlLuLes a defense agalnsL anarchy aL one exLreme
and Lyranny aL Lhe oLher 1hereby people llvlng LogeLher ln a communlLy wlLh lLs
myrlad and complex problems can mlnlmlze Lhe frlcLlon and reduce Lhe confllcLs Lo
assure aL Lhe very leasL a peaceful orderlng of exlsLence 1he ldeal slLuaLlon ls for
Lhe laws beneflLs Lo be avallable Lo all LhaL none be placed ouLslde Lhe sphere of
lLs coverage Cnly Lhus could chance and favor be excluded and Lhe affalrs of men
governed by LhaL serene and lmparLlal unlformlLy whlch ls of Lhe very essence of
Lhe ldea of law 1he acLual glven Lhlngs as Lhey are and llkely Lo conLlnue Lo be
cannoL approxlmaLe Lhe ldeal nor ls Lhe law suscepLlble Lo Lhe reproach LhaL lL
does noL Lake lnLo accounL Lhe realLles of Lhe slLuaLlon * * * 1o assure LhaL Lhe
general welfare be promoLed whlch ls Lhe end of law a regulaLory measure may
cuL lnLo Lhe rlghLs Lo llberLy and properLy 1hose adversely affecLed may under such
clrcumsLances lnvoke Lhe equal proLecLlon clause only lf Lhey can show LhaL Lhe
governmenLal acL assalled far from belng lnsplred by Lhe aLLalnmenL of Lhe
common weal was prompLed by Lhe splrlL of hosLlllLy or aL Lhe very leasL
dlscrlmlnaLlon LhaL flnds no supporL ln reason lL sufflces Lhen LhaL Lhe laws operaLe
equally and unlformly on all persons under slmllar clrcumsLances or LhaL all persons
musL be LreaLed ln Lhe same manner Lhe condlLlons noL belng dlfferenL boLh ln Lhe
prlvlleges conferred and Lhe llablllLles lmposed lavorlLlsm and undue preference
cannoL be allowed lor Lhe prlnclple ls LhaL equal proLecLlon and securlLy shall be
glven Lo every person under clrcumsLances whlch lf noL ldenLlcal are analogous lf
law be looked upon ln Lerms of burden or charges Lhose LhaL fall wlLhln a class
should be LreaLed ln Lhe same fashlon whaLever resLrlcLlons casL on some ln Lhe
group equally blndlng on Lhe resL
2S

6 nor does lL mlllLaLe agalnsL Lhe valldlLy of Lhe LeLLer of lnsLrucLlon [usL because
Lhe ban lmposed does noL go as far as lL could have and Lherefore could be less
efflcaclous ln characLer 1haL was Lhe soluLlon whlch for Lhe resldenL expresslng a
power valldly lodged ln hlm recommended lLself 1here was a slLuaLlon LhaL called
for a correcLlve measure Pe declded LhaL whaL was lssued by hlm would do [usL
LhaL or aL Lhe very leasL help ln easlng Lhe slLuaLlon 1haL lL dld noL cover oLher
maLLers whlch could very well have been regulaLed does noL call for a declaraLlon of
nulllLy 1he resldenL Lo paraphrase lotz v Atooeto
26
ls noL requlred by Lhe
ConsLlLuLlon Lo adhere Lo Lhe pollcy of all or none
27
lL ls qulLe obvlous Lhen LhaL
no equal proLecLlon quesLlon arlses
7 lL may noL be amlss Lo refer Lo a 1981 Amerlcan Supreme CourL declslon
Mlooesoto v clovet leof cteomety compooy
28
8espondenL along wlLh several
oLher buslness corporaLlons adversely affecLed lnvolved ln Lhe manufacLure and
uLlllzaLlon of plasLlc mllk conLalners flled sulL ln a MlnnesoLa dlsLrlcL courL seeklng Lo
en[oln enforcemenL of a MlnnesoLa sLaLuLe bannlng Lhe reLall sale of mllk ln plasLlc
nonreLurnable nonreflllable conLalners buL permlLLlng such sale ln oLher
nonreLurnable nonreflllable conLalners such as paperboard mllk carLons AfLer
conducLlng exLenslve evldenLlary hearlngs Lhe MlnnesoLa courL en[olned
enforcemenL of Lhe sLaLuLe flndlng LhaL lL vlolaLed among oLhers Lhe equal
proLecLlon clause of Lhe lourLeenLh AmendmenL Lo Lhe lederal ConsLlLuLlon 1he
MlnnesoLa Supreme CourL afflrmed Cn cerLlorarl Lhe unlLed SLaLes Supreme CourL
reversed wlLh only !usLlce SLevens dlssenLlng 1he oplnlon by !usLlce 8rennan
noLed LhaL proponenLs of Lhe leglslaLlon argued LhaL lL would promoLe resource
conservaLlon ease solld wasLe dlsposal problems and conserve energy
29
1haL
sufflced for Lhe CourL Lo conclude LhaL Lhe ban on plasLlc nonreLurnable mllk
conLalners bears a raLlonal relaLlon Lo Lhe SLaLes ob[ecLlves and musL be susLalned
under Lhe Lqual roLecLlon Clause
30
lL does show LhaL noLwlLhsLandlng Lhe new
equal proLecLlon approach wlLh lLs emphasls on suspecL classlflcaLlon and
fundamenLal rlghLs and lnLeresLs sLandard a concepL so ably expounded by
professor CunLher Lhe raLlonal relaLlon LesL
31
sLlll reLalns lLs valldlLy noL LhaL
Lhere could be any ob[ecLlon Lo Lhe classlflcaLlon here followed as belng ln any way
suscepLlble Lo such a pe[oraLlve expresslon as suspecL or LhaL Lhe assalled LeLLer
of lnsLrucLlon does noL quallfy under Lhe fundamenLal rlghLs and lnLeresLs
sLandard
8 1here was seL forLh ln Lhe peLlLlon whaL were referred Lo as oLher reasonable
measures whlch Lhe auLhorlLles concerned wlLh energy conservaLlon can Lake
lmmedlaLely whlch are ln facL accepLable and obvlously called for and should have
been done long ago Lo wlL 1 requlre and esLabllsh Laxl sLands equlpped wlLh
efflclenL Lelephone and communlcaLlon sysLems 2 sLrlcL lmplemenLaLlon and
observance of cargo Lruck hours on maln arLerles 3 sLrlcL observance of Lrafflc
rules 4 effecLlve soluLlon of Lrafflc problems and decongesLlon of Lrafflc Lhrough
rerouLlng and qulck repalr of roads and efflclenL operaLlon of double decker buses
3 raLlonlng of gasollne Lo avold panlc buylng and glve Lhe prlvaLe car owner Lhe
opLlon and responslblllLy of decldlng on Lhe use of hls allocaLlon 6 allow neon and
elecLrlcally devlsed adverLlslng slgns only from flve oclock pm Lo nlne oclock pm
7 prohlblL lmmedlaLely Lhe lmporLaLlon of heavy and luxury cars and serlously re
examlne Lhe car manufacLurlng program
32
AdmlLLedly such measures are
conduclve Lo energy conservaLlon 1he quesLlon before us however ls llmlLed Lo
wheLher or noL LeLLer of lnsLrucLlon 869 as lmplemenLed by Memorandum Clrcular
no 39 ls vlolaLlve of cerLaln consLlLuLlonal rlghLs lL goes no furLher Lhan LhaL 1he
deLermlnaLlon of Lhe mode and manner Lhrough whlch Lhe ob[ecLlve of mlnlmlzlng
Lhe consumpLlon of oll producLs may be aLLalned ls lefL Lo Lhe dlscreLlon of Lhe
183

pollLlcal branches
33
AbsenL Lherefore Lhe alleged lnfrlngemenL of consLlLuLlonal
rlghLs more preclsely Lhe due process and equal proLecLlon guaranLees Lhls CourL
cannoL ad[udge LeLLer of lnsLrucLlon no 869 as LalnLed by unconsLlLuLlonallLy
9 lL was llkewlse conLended LhaL Memorandum Clrcular no 39 lssued by Lhe Lhen
respondenL MlnlsLer of ubllc Works 1ransporLaLlon and CommunlcaLlons and
Lhen respondenL Land 1ransporLaLlon Commlssloner lmposlng Lhe penalLles of
flne conflscaLlon of vehlcle and cancellaLlon of llcense ls llkewlse unconsLlLuLlonal
peLlLloners lnvoklng Lhe prlnclple of nondelegaLlon of leglslaLlve power
34
1o LhaL
exLenL LhaL a LeLLer of lnsLrucLlon may be vlewed as an exerclse of Lhe decree
maklng power of Lhe resldenL Lhen such an argumenL ls fuLlle lf however vlewed
as a compllance wlLh Lhe duLy Lo Lake care LhaL Lhe laws be falLhfully execuLed as a
consequence of whlch subordlnaLe execuLlve offlclals may ln Lurn lssue
lmplemenLlng rules and regulaLlons Lhen Lhe ob[ecLlon would properly be
consldered as an oltto vltes allegaLlon 1here ls Lhls relevanL excerpL from 1eoxoo v
Membet of tbe 8ootJ of AJmlolsttotots
3S
1 1he recognlLlon of Lhe power of
admlnlsLraLlve offlclals Lo promulgaLe rules ln Lhe lmplemenLaLlon of Lhe sLaLuLe
necessarlly llmlLed Lo whaL ls provlded for ln Lhe leglslaLlve enacLmenL may be
found ln Lhe early case of uolteJ 5totes v 8ottlos declded ln 1908 1hen came ln a
1914 declslon uolteJ 5totes v 1oposl Molloo a dellneaLlon of Lhe scope of such
compeLence 1hus Cf course Lhe regulaLlons adopLed under leglslaLlve auLhorlLy by
a parLlcular deparLmenL musL be ln harmony wlLh Lhe provlslons of Lhe law and for
Lhe sole purpose of carrylng lnLo effecL lLs general provlslons 8y such regulaLlons
of course Lhe law lLself can noL be exLended So long however as Lhe regulaLlons
relaLe solely Lo carrylng lnLo effecL Lhe provlslons of Lhe law Lhey are valld ln 1936
ln leople v 5ootos Lhls CourL expressed lLs dlsapproval of an admlnlsLraLlve order
LhaL would amounL Lo an excess of Lhe regulaLory power vesLed ln an admlnlsLraLlve
offlclal We reafflrmed such a docLrlne ln a 1931 declslon where we agaln made
clear LhaL where an admlnlsLraLlve order beLrays lnconslsLency or repugnancy Lo
Lhe provlslons of Lhe AcL Lhe mandaLe of Lhe AcL musL prevall and musL be
followed !usLlce 8arrera speaklng for Lhe CourL ln vlctotlos Mlllloq compooy loc
v 5oclol 5ecotlty commlssloo clLlng arker as well as uavls dld Lersely sum up Lhe
maLLer Lhus A rule ls blndlng on Llle courLs so long as Lhe procedure flxed for lLs
promulgaLlon ls followed and lLs scope ls wlLhln Lhe sLaLuLory granLed by Lhe
leglslaLure even lf Lhe courLs are noL ln agreemenL wlLh Lhe pollcy sLaLed Lhereln or
lLs lnnaLe wlsdom * * * Cn Lhe oLher hand admlnlsLraLlve lnLerpreLaLlon of Lhe law
ls aL besL merely advlsory for lL ls Lhe courLs LhaL flnally deLermlne whaL Lhe law
means lL cannoL be oLherwlse as Lhe ConsLlLuLlon llmlLs Lhe auLhorlLy of Lhe
resldenL ln whom all execuLlve power resldes Lo Lake care LhaL Lhe laws be
falLhfully execuLed no lesser admlnlsLraLlve execuLlve offlce or agency Lhen can
conLrary Lo Lhe express language of Lhe ConsLlLuLlon asserL for lLself a more
exLenslve prerogaLlve
36
lL was alleged ln Lhe Answer of SollclLor Ceneral LsLellLo
Mendoza LhaL LeLLer of lnsLrucLlon 869 and Memorandum Clrcular no 39 were
adopLed pursuanL Lo Lhe Land 1ransporLaLlon and 1rafflc Code
37
lL conLalns a
speclflc provlslon as Lo penalLles
38
1hus lor vlolaLlon of any provlslons of Lhls AcL
or regulaLlons promulgaLed pursuanL hereLo noL herelnbefore speclflcally
punlshed a flne of noL less Lhan Len nor more Lhan flfLy pesos shall be lmposed
39

Memorandum Clrcular no 39 cannoL be held Lo be oltto vltes as long as Lhe flne
lmposed ls noL less Lhan Len nor more Lhan flfLy pesos As Lo suspenslon of
reglsLraLlon
40
Lhe Code lnsofar as appllcable provldes Whenever lL shall appear
from Lhe records of Lhe Commlsslon LhaL durlng any LwelvemonLh perlod more
Lhan Lhree warnlngs for vlolaLlons of Lhls AcL have been glven Lo Lhe owner of a
moLor vehlcle or LhaL Lhe sald owner has been convlcLed by a compeLenL courL
more Lhan once for vlolaLlon of such laws Lhe Commlssloner may ln hls dlscreLlon
suspend Lhe cerLlflcaLe of reglsLraLlon for a perlod noL exceedlng nlneLy days and
Lhereupon shall requlre Lhe lmmedlaLe surrender of Lhe number plaLes * * *
41
lL
follows LhaL whlle Lhe lmposlLlon of a flne or Lhe suspenslon of reglsLraLlon under
Lhe condlLlons Lhereln seL forLh ls valld under Lhe Land 1ransporLaLlon and 1rafflc
Code Lhe lmpoundlng of a vehlcle flnds no sLaLuLory [usLlflcaLlon 1o apply LhaL
porLlon of Memorandum Clrcular no 39 would be oltto vltes lL musL llkewlse be
made clear LhaL a penalLy even lf warranLed can only be lmposed ln accordance
wlLh Lhe procedure requlred by law
42

WPL8LlC8L Lhe peLlLlon ls dlsmlssed

Gk No LS9234 September 30 1982
1AkICA8 C9LkA1CkS CI ML1kC MANILA INC VS 8CAkD 9I 1kANS9Ck1A1ICN

MLLLnClCPL88L8A I
1hls eLlLlon for CerLlorarl rohlblLlon and mandamus wlLh rellmlnary ln[uncLlon
and 1emporary 8esLralnlng Crder flled by Lhe 1axlcab CperaLors of MeLro Manlla
lnc lellclslmo Cablgao and Ace 1ransporLaLlon seeks Lo declare Lhe nulllLy of
Memorandum Clrcular no 7742 daLed CcLober 10 1977 of Lhe 8oard of
1ransporLaLlon and Memorandum Clrcular no 32 daLed AugusL 13 1980 of Lhe
8ureau of Land 1ransporLaLlon
eLlLloner 1axlcab CperaLors of MeLro Manlla lnc (1CMMl) ls a domesLlc
corporaLlon composed of Laxlcab operaLors who are granLees of CerLlflcaLes of
ubllc Convenlence Lo operaLe Laxlcabs wlLhln Lhe ClLy of Manlla and Lo any oLher
place ln Luzon accesslble Lo vehlcular Lrafflc eLlLloners Ace 1ransporLaLlon
CorporaLlon and lellclslmo Cablgao are Lwo of Lhe members of 1CMMl each belng
an operaLor and granLee of such cerLlflcaLe of publlc convenlence
Cn CcLober 10 1977 respondenL 8oard of 1ransporLaLlon (8C1) lssued
Memorandum Clrcular no 7742 whlch reads
Su8!LC1 haslng ouL and 8eplacemenL of
Cld and ullapldaLed 1axls
184

WPL8LAS lL ls Lhe pollcy of Lhe governmenL Lo lnsure LhaL only safe and
comforLable unlLs are used as publlc conveyances
WPL8LAS Lhe rldlng publlc parLlcularly ln MeLroManlla has Llme and agaln
complalned agalnsL and condemned Lhe conLlnued operaLlon of old and
dllapldaLed Laxls
WPL8LAS ln order LhaL Lhe commuLlng publlc may be assured of comforL
convenlence and safeLy a program of phaslng ouL of old and dllapldaLed Laxls
should be adopLed
WPL8LAS afLer sLudles and lnqulrles made by Lhe 8oard of 1ransporLaLlon Lhe
laLLer belleves LhaL ln slx years of operaLlon a Laxl operaLor has noL only covered
Lhe cosL of hls Laxls buL has made reasonable proflL for hls lnvesLmenLs
nCW 1PL8LlC8L pursuanL Lo Lhls pollcy Lhe 8oard hereby declares LhaL no car
beyond slx years shall be operaLed as Laxl and ln lmplemenLaLlon of Lhe same
hereby promulgaLes Lhe followlng rules and regulaLlons
1 As of uecember 31 1977 all Laxls of Model 1971 and earller are ordered
wlLhdrawn from publlc servlce and LhereafLer may no longer be reglsLered and
operaLed as Laxls ln Lhe reglsLraLlon of cards for 1978 only Laxls of Model 1972 and
laLer shall be accepLed for reglsLraLlon and allowed for operaLlon
2 As of uecember 31 1978 all Laxls of Model 1972 are ordered wlLhdrawn from
publlc servlce and LhereafLer may no longer be reglsLered and operaLed as Laxls ln
Lhe reglsLraLlon of cars for 1979 only Laxls of Model 1973 and laLer shall be
accepLed for reglsLraLlon and allowed for operaLlon and every year LhereafLer
Lhere shall be a slxyear llfeLlme of Laxl Lo wlL
1980 Model 1974
1981 Model 1973 eLc
All Laxls of earller models Lhan Lhose provlded above are hereby ordered wlLhdrawn
from publlc servlce as of Lhe lasL day of reglsLraLlon of each parLlcular year and Lhelr
respecLlve plaLes shall be surrendered dlrecLly Lo Lhe 8oard of 1ransporLaLlon for
subsequenL Lurnover Lo Lhe Land 1ransporLaLlon Commlsslon
lor an orderly lmplemenLaLlon of Lhls Memorandum Clrcular Lhe rules hereln shall
lmmedlaLely be effecLlve ln MeLroManlla lLs lmplemenLaLlon ouLslde MeLro
Manlla shall be carrled ouL only afLer Lhe pro[ecL has been lmplemenLed ln MeLro
Manlla and only afLer Lhe daLe has been deLermlned by Lhe 8oard
1

ursuanL Lo Lhe above 8C1 clrcular respondenL ulrecLor of Lhe 8ureau of Land
1ransporLaLlon (8L1) lssued lmplemenLlng Clrcular no 32 daLed AugusL 13 1980
lnsLrucLlng Lhe 8eglonal ulrecLor Lhe Mv 8eglsLrars and oLher personnel of 8L1 all
wlLhln Lhe naLlonal CaplLol 8eglon Lo lmplemenL sald Clrcular and formulaLlng a
schedule of phaseouL of vehlcles Lo be allowed and accepLed for reglsLraLlon as
publlc conveyances 1o quoLe sald Clrcular
ursuanL Lo 8C1 MemoClrcular no 7742 Laxl unlLs wlLh year models over slx (6)
years old are now banned from operaLlng as publlc uLlllLles ln MeLro Manlla As
such Lhe unlLs lnvolved should be consldered as auLomaLlcally dropped as publlc
uLlllLles and Lherefore do noL requlre any furLher dropplng order from Lhe 8C1
PenceforLh Laxl unlLs wlLhln Lhe naLlonal CaplLol 8eglon havlng year models over 6
years old shall be refused reglsLraLlon 1he followlng schedule of phaseouL ls
herewlLh prescrlbed for Lhe guldance of all concerned
SLrlcL compllance here ls deslred
2

ln accordance LherewlLh cabs of model 1971 were phaseouL ln reglsLraLlon year
1978 Lhose of model 1972 ln 1979 Lhose of model 1973 ln 1980 and Lhose of
model 1974 ln 1981
Cn !anuary 27 1981 peLlLloners flled a eLlLlon wlLh Lhe 8C1 dockeLed as Case no
807333 seeklng Lo nulllfy MC no 7742 or Lo sLop lLs lmplemenLaLlon Lo allow Lhe
reglsLraLlon and operaLlon ln 1981 and subsequenL years of Laxlcabs of model 1974
as well as Lhose of earller models whlch were phasedouL provlded LhaL aL Lhe
Llme of reglsLraLlon Lhey are roadworLhy and flL for operaLlon
Cn lebruary 16 1981 peLlLloners flled before Lhe 8C1 a ManlfesLaLlon and urgenL
MoLlon praylng for an early hearlng of Lhelr peLlLlon 1he case was heard on
lebruary 20 1981 eLlLloners presenLed LesLlmonlal and documenLary evldence
offered Lhe same and manlfesLed LhaL Lhey would submlL addlLlonal documenLary
proofs Sald proofs were submlLLed on March 27 1981 aLLached Lo peLlLloners
pleadlng enLlLled ManlfesLaLlon resenLaLlon of AddlLlonal Lvldence and
Submlsslon of Lhe Case for 8esoluLlon
3

Cn november 28 1981 peLlLloners flled before Lhe same 8oard a ManlfesLaLlon
and urgenL MoLlon Lo 8esolve or ueclde Maln eLlLlon praylng LhaL Lhe case be
resolved or declded noL laLer Lhan uecember 10 1981 Lo enable Lhem ln case of
denlal Lo avall of whaLever remedy Lhey may have under Lhe law for Lhe proLecLlon
of Lhelr lnLeresLs before Lhelr 1973 model cabs are phasedouL on !anuary 1 1982
eLlLloners Lhrough lLs resldenL allegedly made personal followups of Lhe case
buL was laLer lnformed LhaL Lhe records of Lhe case could noL be locaLed
Cn uecember 29 1981 Lhe presenL eLlLlon was lnsLlLuLed whereln Lhe followlng
querles were posed for conslderaLlon by Lhls CourL
A uld 8C1 and 8L1 promulgaLe Lhe quesLloned memorandum clrculars ln accord
wlLh Lhe manner requlred by resldenLlal uecree no 101 Lhereby safeguardlng Lhe
peLlLloners consLlLuLlonal rlghL Lo procedural due process?
8 CranLlng arguendo LhaL respondenLs dld comply wlLh Lhe procedural
requlremenLs lmposed by resldenLlal uecree no 101 would Lhe lmplemenLaLlon
and enforcemenL of Lhe assalled memorandum clrculars vlolaLe Lhe peLlLloners
consLlLuLlonal rlghLs Lo
(1) Lqual proLecLlon of Lhe law
(2) SubsLanLlve due process and
(3) roLecLlon agalnsL arblLrary and unreasonable classlflcaLlon and sLandard?
Oo ltoceJotol ooJ 5obstootlve uoe ltocess
resldenLlal uecree no 101 granLs Lo Lhe 8oard of 1ransporLaLlon Lhe power
183

4 1o flx [usL and reasonable sLandards classlflcaLlon regulaLlons pracLlces
measuremenLs or servlce Lo be furnlshed lmposed observed and followed by
operaLors of publlc uLlllLy moLor vehlcles
SecLlon 2 of sald uecree provldes procedural guldellnes for sald agency Lo follow ln
Lhe exerclse of lLs powers
Sec 2 Lxerclse of powers ln Lhe exerclse of Lhe powers granLed ln Lhe precedlng
secLlon Lhe 8oard shag proceed prompLly along Lhe meLhod of leglslaLlve lnqulry
AparL from lLs own lnvesLlgaLlon and sLudles Lhe 8oard ln lLs dlscreLlon may
requlre Lhe cooperaLlon and asslsLance of Lhe 8ureau of 1ransporLaLlon Lhe
hlllpplne ConsLabulary parLlcularly Lhe Plghway aLrol Croup Lhe supporL
agencles wlLhln Lhe ueparLmenL of ubllc Works 1ransporLaLlon and
CommunlcaLlons or any oLher governmenL offlce or agency LhaL may be able Lo
furnlsh useful lnformaLlon or daLa ln Lhe formulaLlon of Lhe 8oard of any pollcy
plan or program ln Lhe lmplemenLaLlon of Lhls uecree
1he 8oard may also can conferences requlre Lhe submlsslon of poslLlon papers or
oLher documenLs lnformaLlon or daLa by operaLors or oLher persons LhaL may be
affecLed by Lhe lmplemenLaLlon of Lhls uecree or employ any oLher sulLable means
of lnqulry
ln supporL of Lhelr submlsslon LhaL Lhey were denled procedural due process
peLlLloners conLend LhaL Lhey were noL caged upon Lo submlL Lhelr poslLlon papers
nor were Lhey ever summoned Lo aLLend any conference prlor Lo Lhe lssuance of
Lhe quesLloned 8C1 Clrcular
lL ls clear from Lhe provlslon aforequoLed however LhaL Lhe leeway accorded Lhe
8oard glves lL a wlde range of cholce ln gaLherlng necessary lnformaLlon or daLa ln
Lhe formulaLlon of any pollcy plan or program lL ls noL mandaLory LhaL lL should
flrsL call a conference or requlre Lhe submlsslon of poslLlon papers or oLher
documenLs from operaLors or persons who may be affecLed Lhls belng only one of
Lhe opLlons open Lo Lhe 8oard whlch ls glven wlde dlscreLlonary auLhorlLy
eLlLloners cannoL [usLlflably clalm Lherefore LhaL Lhey were deprlved of
procedural due process nelLher can Lhey sLaLe wlLh cerLalnLy LhaL publlc
respondenLs had noL avalled of oLher sources of lnqulry prlor Lo lssulng Lhe
challenged Clrculars operaLors of publlc conveyances are noL Lhe only prlmary
sources of Lhe daLa and lnformaLlon LhaL may be deslred by Lhe 8C1
ulspenslng wlLh a publlc hearlng prlor Lo Lhe lssuance of Lhe Clrculars ls nelLher
vlolaLlve of procedural due process As held ln CenLral 8ank vs Pon Clorlbel and
8anco llllplno 44 SC8A 307 (1972)
evlous noLlce and hearlng as elemenLs of due process are consLlLuLlonally
requlred for Lhe proLecLlon of llfe or vesLed properLy rlghLs as well as of llberLy
when lLs llmlLaLlon or loss Lakes place ln consequence of a [udlclal or quasl[udlclal
proceedlng generally dependenL upon a pasL acL or evenL whlch has Lo be
esLabllshed or ascerLalned lL ls noL essenLlal Lo Lhe valldlLy of general rules or
regulaLlons promulgaLed Lo govern fuLure conducL of a class or persons or
enLerprlses unless Lhe law provldes oLherwlse (Lmphasls supplled)
eLlLloners furLher Lake Lhe poslLlon LhaL flxlng Lhe celllng aL slx (6) years ls arblLrary
and oppresslve because Lhe roadworLhlness of Laxlcabs depends upon Lhelr klnd of
malnLenance and Lhe use Lo whlch Lhey are sub[ecLed and Lherefore Lhelr acLual
physlcal condlLlon should be Laken lnLo conslderaLlon aL Lhe Llme of reglsLraLlon As
publlc conLend however lL ls lmpracLlcal Lo sub[ecL every Laxlcab Lo consLanL and
recurrlng evaluaLlon noL Lo speak of Lhe facL LhaL lL can open Lhe door Lo Lhe
adopLlon of mulLlple sLandards posslble colluslon and even grafL and corrupLlon A
reasonable sLandard musL be adopLed Lo apply Lo an vehlcles affecLed unlformly
falrly and [usLly 1he span of slx years supplles LhaL reasonable sLandard 1he
producL of experlence shows LhaL by LhaL Llme Laxls have fully depreclaLed Lhelr
cosL recovered and a falr reLurn on lnvesLmenL obLalned 1hey are also generally
dllapldaLed and no longer flL for safe and comforLable servlce Lo Lhe publlc speclally
conslderlng LhaL Lhey are ln conLlnuous operaLlon pracLlcally 24 hours everyday ln
Lhree shlfLs of elghL hours per shlfL WlLh LhaL sLandard of reasonableness and
absence of arblLrarlness Lhe requlremenL of due process has been meL
Oo pool ltotectloo of tbe low
eLlLloners alleged LhaL Lhe Clrcular ln quesLlon vlolaLes Lhelr rlghL Lo equal
proLecLlon of Lhe law because Lhe same ls belng enforced ln MeLro Manlla only and
ls dlrecLed solely Lowards Lhe Laxl lndusLry AL Lhe ouLseL lL should be polnLed ouL
LhaL lmplemenLaLlon ouLslde MeLro Manlla ls also envlsloned ln Memorandum
Clrcular no 7742 1o repeaL Lhe perLlnenL porLlon
lor an orderly lmplemenLaLlon of Lhls Memorandum Clrcular Lhe rules hereln shall
lmmedlaLely be effecLlve ln MeLro Manlla lLs lmplemenLaLlon ouLslde MeLro Manlla
shall be carrled ouL only afLer Lhe pro[ecL has been lmplemenLed ln MeLro Manlla
and only afLer Lhe daLe has been deLermlned by Lhe 8oard
4

ln facL lL ls Lhe undersLandlng of Lhe CourL LhaL lmplemenLaLlon of Lhe Clrculars ln
Cebu ClLy ls already belng effecLed wlLh Lhe 8C1 ln Lhe process of conducLlng
sLudles regardlng Lhe operaLlon of Laxlcabs ln oLher clLles
1he 8oards reason for enforclng Lhe Clrcular lnlLlally ln MeLro Manlla ls LhaL
Laxlcabs ln Lhls clLy compared Lo Lhose of oLher places are sub[ecLed Lo heavler
Lrafflc pressure and more consLanL use 1hls ls of common knowledge Conslderlng
LhaL Lrafflc condlLlons are noL Lhe same ln every clLy a subsLanLlal dlsLlncLlon exlsLs
so LhaL lnfrlngemenL of Lhe equal proLecLlon clause can hardly be successfully
clalmed
As enunclaLed ln Lhe preambular clauses of Lhe challenged 8C1 Clrcular Lhe
overrldlng conslderaLlon ls Lhe safeLy and comforL of Lhe rldlng publlc from Lhe
dangers posed by old and dllapldaLed Laxls 1he SLaLe ln Lhe exerclse of lLs pollce
power can prescrlbe regulaLlons Lo promoLe Lhe healLh morals peace good order
safeLy and general welfare of Lhe people lL can prohlblL all Lhlngs hurLful Lo
comforL safeLy and welfare of socleLy
3
lL may also regulaLe properLy rlghLs
6
ln Lhe
186

language of Chlef !usLlce Lnrlque M lernando Lhe necesslLles lmposed by publlc
welfare may [usLlfy Lhe exerclse of governmenLal auLhorlLy Lo regulaLe even lf
Lhereby cerLaln groups may plauslbly asserL LhaL Lhelr lnLeresLs are dlsregarded
7

ln so far as Lhe nonappllcaLlon of Lhe assalled Clrculars Lo oLher LransporLaLlon
servlces ls concerned lL need only be recalled LhaL Lhe equal proLecLlon clause does
noL lmply LhaL Lhe same LreaLmenL be accorded all and sundry lL applles Lo Lhlngs
or persons ldenLlcally or slmllarly slLuaLed lL permlLs of classlflcaLlon of Lhe ob[ecL
or sub[ecL of Lhe law provlded classlflcaLlon ls reasonable or based on subsLanLlal
dlsLlncLlon whlch make for real dlfferences and LhaL lL musL apply equally Lo each
member of Lhe class
8
WhaL ls requlred under Lhe equal proLecLlon clause ls Lhe
unlform operaLlon by legal means so LhaL all persons under ldenLlcal or slmllar
clrcumsLance would be accorded Lhe same LreaLmenL boLh ln prlvllege conferred
and Lhe llablllLles lmposed
9
1he challenged Clrculars saLlsfy Lhe foregolng crlLerla
LvldenL Lhen ls Lhe concluslon LhaL Lhe quesLloned Clrculars do noL suffer from any
consLlLuLlonal lnflrmlLy 1o declare a law unconsLlLuLlonal Lhe lnfrlngemenL of
consLlLuLlonal rlghL musL be clear caLegorlcal and undenlable
10

WPL8LlC8L Lhe WrlLs prayed for are denled and Lhls eLlLlon ls hereby dlsmlssed
no cosLs
SC C8uL8Lu

Gk No L49112 Iebruary 2 1979
LLCVILLC C AGUS1IN VS LDU

lL8nAnuC I
1he valldlLy of a leLLer of lnsLrucLlon
1
provldlng for an early seamlng devlce for
moLor vehlcles ls assalled ln Lhls prohlblLlon proceedlng as belng vlolaLlve of Lhe
consLlLuLlonal guaranLee of due process and lnsofar as Lhe rules and regulaLlons for
lLs lmplemenLaLlon are concerned for Lransgresslng Lhe fundamenLal prlnclple of
non delegaLlon of leglslaLlve power 1he LeLLer of lnsLrucLlon ls sLlgmaLlzed by
peLlLloner who ls possessed of Lhe requlslLe sLandlng as belng arblLrary and
oppresslve A Lemporary resLralnlng order as lssued and respondenLs 8omeo l Ldu
Land 1ransporLaLlon Commlssloner !uan once Lnrlle MlnlsLer of naLlonal uefense
Alfredo L !ulnlo MlnlsLer of ubllc Works 1ransporLaLlon and CommunlcaLlons
and 8alLazar Aqulno MlnlsLer of ubllc Plghways were Lo answer 1haL Lhey dld ln
a pleadlng submlLLed by SollclLor Ceneral LsLellLo Mendoza
2
lmpressed wlLh a
hlghly persuaslve quallLy lL makes devold clear LhaL Lhe lmpuLaLlon of a
consLlLuLlonal lnflrmlLy ls devold of [usLlflcaLlon 1he LeLLer of lnsLrucLlon on ls a
valld pollce power measure nor could Lhe lmplemenLlng rules and regulaLlons
lssued by respondenL Ldu be consldered as amounLlng Lo an exerclse of leglslaLlve
power Accordlngly Lhe peLlLlon musL be dlsmlssed
1he facLs are undlspuLed 1he assalled LeLLer of lnsLrucLlon no 229 of resldenL
Marcos lssued on uecember 2 1974 reads ln full Whereas sLaLlsLlcs show LhaL
one of Lhe ma[or causes of faLal or serlous accldenLs ln land LransporLaLlon ls Lhe
presence of dlsabled sLalled or parked moLor vehlcles along sLreeLs or hlghways
wlLhouL any approprlaLe early warnlng devlce Lo slgnal approachlng moLorlsLs of
Lhelr presence Whereas Lhe hazards posed by such obsLrucLlons Lo Lrafflc have
been recognlzed by lnLernaLlonal bodles concerned wlLh Lrafflc safeLy Lhe 1968
vlenna ConvenLlon on 8oad Slgns and Slgnals and Lhe unlLed naLlons CrganlzaLlon
(un) Whereas Lhe sald vlenna ConvenLlon whlch was raLlfled by Lhe hlllpplne
CovernmenL under u no 207 recommended Lhe enacLmenL of local leglslaLlon
for Lhe lnsLallaLlon of road safeLy slgns and devlces now Lherefore l lerdlnand L
Marcos resldenL of Lhe hlllpplnes ln Lhe lnLeresL of safeLy on all sLreeLs and
hlghways lncludlng expressways or llmlLed access roads do hereby dlrecL 1 1haL
all owners users or drlvers of moLor vehlcles shall have aL all Llmes ln Lhelr moLor
vehlcles aL leasL one (1) palr of early warnlng devlce conslsLlng of Lrlangular
collapslble reflecLorlzed plaLes ln red and yellow colors aL leasL 13 cms aL Lhe base
and 40 cms aL Lhe sldes 2 Whenever any moLor vehlcle ls sLalled or dlsabled or ls
parked for LhlrLy (30) mlnuLes or more on any sLreeL or hlghway lncludlng
expressways or llmlLed access roads Lhe owner user or drlver Lhereof shall cause
Lhe warnlng devlce menLloned hereln Lo be lnsLalled aL leasL four meLers away Lo
Lhe fronL and rear of Lhe moLor vehlcle sLaged dlsabled or parked 3 1he Land
1ransporLaLlon Commlssloner shall cause 8eflecLorlzed 1rlangular Larly Warnlng
uevlces as hereln descrlbed Lo be prepared and lssued Lo reglsLered owners of
moLor vehlcles excepL moLorcycles and Lrallers charglng for each plece noL more
Lhan 13 of Lhe acqulslLlon cosL Pe shall also promulgaLe such rules and
regulaLlons as are approprlaLe Lo effecLlvely lmplemenL Lhls order 4 All hereby
concerned shall closely coordlnaLe and Lake such measures as are necessary or
approprlaLe Lo carry lnLo effecL Lhen lnsLrucLlon
3
1hereafLer on november 13
1976 lL was amended by LeLLer of lnsLrucLlon no 479 ln Lhls wlse aragraph 3 of
LeLLer of lnsLrucLlon no 229 ls hereby amended Lo read as follows 3 1he Land
LransporLaLlon Commlssloner shall requlre every moLor vehlcle owner Lo procure
from any and presenL aL Lhe reglsLraLlon of hls vehlcle one palr of a reflecLorlzed
early warnlng devlce as d bed of any brand or make chosen by mld moLor vehlcle
1he Land 1ransporLaLlon Commlssloner shall also promulgaLe such rule and
regulaLlons as are approprlaLe Lo effecLlvely lmplemenL Lhls order
4
1here was
lssued accordlngly by respondenL Ldu Lhe lmplemenLlng rules and regulaLlons on
uecember 10 1976
3
1hey were noL enforced as resldenL Marcos on !anuary 23
1977 ordered a slxmonLh perlod of suspenslon lnsofar as Lhe lnsLallaLlon of early
warnlng devlce as a prereglsLraLlon requlremenL for moLor vehlcle was concerned
6
1hen on !une 30 1978 anoLher LeLLer of lnsLrucLlon
7
Lhe llfLlng of such
suspenslon and dlrecLed Lhe lmmedlaLe lmplemenLaLlon of LeLLer of lnsLrucLlon no
229 as amended
8
lL was noL unLll AugusL 29 1978 LhaL respondenL Ldu lssued
Memorandum Clrcular no 32 worded Lhus ln pursuance of LeLLer of lnsLrucLlon
no 716 daLed !une 30 1978 Lhe lmplemenLaLlon of LeLLer of lnsLrucLlon no 229
187

as amended by LeLLer of lnsLrucLlons no 479 requlrlng Lhe use of Larly Warnlng
uevlces (LWu) on moLor vehlcle Lhe followlng rules and regulaLlons are hereby
lssued 1 L1C AdmlnlsLraLlve Crder no 1 daLed uecember 10 1976 shall now be
lmplemenLed provlded LhaL Lhe devlce may come from whaLever source and LhaL lL
shall have subsLanLlally complled wlLh Lhe LWu speclflcaLlons conLalned ln SecLlon 2
of sald admlnlsLraLlve order 2 ln order Lo lnsure LhaL every moLor vehlcle excepL
moLorcycles ls equlpped wlLh Lhe devlce a palr of serlally numbered sLlckers Lo be
lssued free of charge by Lhls Commlsslon shall be aLLached Lo each LWu 1he LWu
serlal number shall be lndlcaLed on Lhe reglsLraLlon cerLlflcaLe and offlclal recelpL of
paymenL of currenL reglsLraLlon fees of Lhe moLor vehlcle concerned All Crders
Clrculars and Memoranda ln confllcL herewlLh are hereby superseded 1hls Crder
shall Lake effecL lmmedlaLely
9
lL was for lmmedlaLe lmplemenLaLlon by respondenL
Alfredo L !ulnlo as MlnlsLer of ubllc Works LransporLaLlon and CommunlcaLlons
10

eLlLloner afLer seLLlng forLh LhaL he ls Lhe owner of a volkswagen 8eeLle Car
Model 13033 already properly equlpped when lL came ouL from Lhe assembly llnes
wlLh bllnklng llghLs fore and afL whlch could very well serve as an early warnlng
devlce ln case of Lhe emergencles menLloned ln LeLLer of lnsLrucLlons no 229 as
amended as well as Lhe lmplemenLlng rules and regulaLlons ln AdmlnlsLraLlve Crder
no 1 lssued by Lhe land LransporLaLlon Commlsslon
11
alleged LhaL sald LeLLer of
lnsLrucLlon no 229 as amended clearly vlolaLes Lhe provlslons and delegaLlon of
pollce power slc * * * lor hlm Lhey are oppresslve unreasonable arblLrary
conflscaLory nay unconsLlLuLlonal and conLrary Lo Lhe precepLs of our
compasslonaLe new SocleLy
12
Pe conLended LhaL Lhey are lnfecLed wlLh
arblLrarlness because lL ls harsh cruel and unconsclonable Lo Lhe moLorlng publlc
13
are oneslded onerous and paLenLly lllegal and lmmoral because Lhey wlll
make manufacLurers and dealers lnsLanL mllllonalres aL Lhe expense of car owners
who are compelled Lo buy a seL of Lhe socalled early warnlng devlce aL Lhe raLe of
3600 Lo 7200 per seL
14
are unlawful and unconsLlLuLlonal and conLrary Lo Lhe
precepLs of a compasslonaLe new SocleLy as belng compulsory and conflscaLory
on Lhe parL of Lhe moLorlsLs who could very well provlde a pracLlcal alLernaLlve road
safeLy devlce or a beLLer subsLlLuLe Lo Lhe speclfled seL of LWus
13
Pe Lherefore
prayed for a [udgmenL boLh Lhe assalled LeLLers of lnsLrucLlons and Memorandum
Clrcular vold and unconsLlLuLlonal and for a resLralnlng order ln Lhe meanwhlle
A resoluLlon Lo Lhls effecL was handed down by Lhls CourL on CcLober 19 1978 L
49112 (Leovlllo C AgusLln v Pon 8omeo l Ldu eLc eL al) Conslderlng Lhe
allegaLlons conLalned Lhe lssues ralsed and Lhe argumenLs adduced ln Lhe peLlLlon
for prohlblLlon wlLh wrlL of p prohlblLory and/or mandaLory ln[uncLlon Lhe CourL
8esolved Lo (requlre) Lhe respondenLs Lo flle an answer LhereLo wlLhln Lon (10) days
from noLlce and noL Lo move Lo dlsmlss Lhe peLlLlon 1he CourL furLher 8esolved Lo
lssue a Lemporary resLralnlng order effecLlve as of Lhls daLe and conLlnulng unLll
oLherwlse ordered by Lhls CourL
16

1wo moLlons for exLenslon were flled by Lhe Cfflce of Lhe SollclLor Ceneral and
granLed 1hen on november 13 1978 he Answer for respondenLs was submlLLed
AfLer admlLLlng Lhe facLual allegaLlons and sLaLlng LhaL Lhey lacked knowledge or
lnformaLlon sufflclenL Lo form a bellef as Lo peLlLloner ownlng a volkswagen 8eeLle
car Lhey speclflcally deny Lhe allegaLlons and sLaLlng Lhey lacked knowledge or
lnformaLlon sufflclenL Lo form a bellef as Lo peLlLloner ownlng a volkswagen 8eeLle
Car
17
Lhey speclflcally deny Lhe allegaLlons ln paragraphs x and xl (lncludlng lLs
subparagraphs 1 2 3 4) of eLlLlon Lo Lhe effecL LhaL LeLLer of lnsLrucLlon no 229
as amended by LeLLers of lnsLrucLlons nos 479 and 716 as well as Land
LransporLaLlon Commlsslon AdmlnlsLraLlve Crder no 1 and lLs Memorandum
Clrcular no 32 vlolaLes Lhe consLlLuLlonal provlslons on due process of law equal
proLecLlon of law and undue delegaLlon of pollce power and LhaL Lhe same are
llkewlse oppresslve arblLrary conflscaLory oneslded onerous lmmoral
unreasonable and lllegal Lhe LruLh belng LhaL sald allegaLlons are wlLhouL legal and
facLual basls and for Lhe reasons alleged ln Lhe Speclal and AfflrmaLlve uefenses of
Lhls Answer
18
unllke peLlLloner who conLenLed hlmself wlLh a rheLorlcal reclLal of
hls llLany of grlevances and merely lnvoked Lhe sacramenLal phrases of
consLlLuLlonal llLlgaLlon Lhe Answer ln demonsLraLlng LhaL Lhe assalled LeLLer of
lnsLrucLlon was a valld exerclse of Lhe pollce power and lmplemenLlng rules and
regulaLlons of respondenL Ldu noL suscepLlble Lo Lhe charge LhaL Lhere was
unlawful delegaLlon of leglslaLlve power Lhere was ln Lhe porLlon capLloned Speclal
and AfflrmaLlve uefenses a clLaLlon of whaL respondenLs belleved Lo be Lhe
auLhorlLaLlve declslons of Lhls 1rlbunal calllng for appllcaLlon 1hey are cololooq v
wlllloms
19
Motfe v Motoc
20
and Jo v tlcto
21
8eference was llkewlse made Lo
Lhe 1968 vlenna ConvenLlons of Lhe unlLed naLlons on road Lrafflc road slgns and
slgnals of whlch Lhe hlllpplnes was a slgnaLory and whlch was duly raLlfled
22

SollclLor Ceneral Mendoza Look palns Lo refuLe ln deLall ln language calm and
dlspasslonaLe Lhe vlgorous aL Llmes lnLemperaLe accusaLlon of peLlLloner LhaL Lhe
assalled LeLLer of lnsLrucLlon and Lhe lmplemenLlng rules and regulaLlons cannoL
survlve Lhe LesL of rlgorous scruLlny 1o repeaL lLs hlghlypersuaslve quallLy cannoL
be denled
1hls CourL Lhus consldered Lhe peLlLlon submlLLed for declslon Lhe lssues belng
clearly [olned As noLed aL Lhe ouLseL lL ls far from merlLorlous and musL be
dlsmlssed
1 1he LeLLer of lnsLrucLlon ln quesLlon was lssued ln Lhe exerclse of Lhe pollce
power 1haL ls conceded by peLlLloner and ls Lhe maln rellance of respondenLs lL ls
Lhe submlsslon of Lhe former however LhaL whlle embraced ln such a caLegory lL
has offended agalnsL Lhe due process and equal proLecLlon safeguards of Lhe
ConsLlLuLlon alLhough Lhe laLLer polnL was menLloned only ln passlng 1he broad
and expanslve scope of Lhe pollce power whlch was orlglnally ldenLlfled by Chlef
!usLlce 1aney of Lhe Amerlcan Supreme CourL ln an 1847 declslon as noLhlng more
or less Lhan Lhe powers of governmenL lnherenL ln every soverelgnLy
23
was
188

sLressed ln Lhe aforemenLloned case of Jo v tlcto Lhus !usLlce Laurel ln Lhe flrsL
leadlng declslon afLer Lhe ConsLlLuLlon came lnLo force cololooq v wlllloms
ldenLlfled pollce power wlLh sLaLe auLhorlLy Lo enacL leglslaLlon LhaL may lnLerfere
wlLh personal llberLy or properLy ln order Lo promoLe Lhe general welfare ersons
and properLy could Lhus be sub[ecLed Lo all klnds of resLralnLs and burdens ln order
Lo we Lhe general comforL healLh and prosperlLy of Lhe sLaLe ShorLly afLer
lndependence ln 1948 ltlmlclos v loqoso relLeraLed Lhe docLrlne such a
compeLence belng referred Lo as Lhe power Lo prescrlbe regulaLlons Lo promoLe
Lhe healLh morals peace educaLlon good order or safeLy and general welfare of
Lhe people 1he concepL was seL forLh ln negaLlve Lerms by !usLlce Malcolm ln a pre
CommonwealLh declslon as LhaL lnherenL and plenary power ln Lhe SLaLe whlch
enables lL Lo prohlblL all Lhlngs hurLful Lo Lhe comforL safeLy and welfare of socleLy
ln LhaL sense lL could be hardly dlsLlngulshable as noLed by Lhls CourL ln Morfe v
MuLuc wlLh Lhe LoLallLy of leglslaLlve power lL ls ln Lhe above sense Lhe greaLesL
and mosL powerful aL LrlbuLe of governmenL lL ls Lo quoLe !usLlce Malcolm anew
Lhe mosL essenLlal lnslsLenL and aL leasL Lable powers l exLendlng as !usLlce
Polmes apLly polnLed ouL Lo all Lhe greaL publlc needs lLs scope everexpandlng
Lo meeL Lhe exlgencles of Lhe Llmes even Lo anLlclpaLe Lhe fuLure where lL could be
done provldes enough room for an efflclenL and flexlble response Lo condlLlons and
clrcumsLances Lhus assurlng Lhe greaLesL beneflLs ln Lhe language of !usLlce
Cardozo needs LhaL were narrow or parochlal ln Lhe pasL may be lnLerwoven ln
Lhe presenL wlLh Lhe wellbelng of Lhe naLlon WhaL ls crlLlcal or urgenL changes
wlLh Lhe Llme 1he pollce power ls Lhus a dynamlc agency sulLably vague and far
from preclsely deflned rooLed ln Lhe concepLlon LhaL men ln organlzlng Lhe sLaLe
and lmposlng upon lLs governmenL llmlLaLlons Lo safeguard consLlLuLlonal rlghLs dld
noL lnLend Lhereby Lo enable an lndlvldual clLlzen or a group of clLlzens Lo obsLrucL
unreasonably Lhe enacLmenL of such saluLary measures calculaLed Lo communal
peace safeLy good order and welfare
24

2 lL was Lhus a heavy burden Lo be shouldered by peLlLloner compounded by Lhe
facL LhaL Lhe parLlcular pollce power measure challenged was clearly lnLended Lo
promoLe publlc safeLy lL would be a rare occurrence lndeed for Lhls CourL Lo
lnvalldaLe a leglslaLlve or execuLlve acL of LhaL characLer none has been called Lo
our aLLenLlon an lndlcaLlon of lLs belng nonexlsLenL 1he laLesL declslon ln polnL
Ldu v LrlcLa susLalned Lhe valldlLy of Lhe 8eflecLor Law
23
an enacLmenL concelved
wlLh Lhe same end ln vlew cololooq v wlllloms found noLhlng ob[ecLlonable ln a
sLaLuLe Lhe purpose of whlch was 1o promoLe safe LranslL upon and avold
obsLrucLlon on roads and sLreeLs deslgnaLed as naLlonal roads * * *
26
As a maLLer
of facL Lhe flrsL law soughL Lo be nulllfled afLer Lhe effecLlvlLy of Lhe 1933
ConsLlLuLlon Lhe naLlonal uefense AcL
27
wlLh peLlLloner falllng ln hls quesL was
llkewlse prompLed by Lhe lmperaLlve demands of publlc safeLy
3 1he fuLlllLy of peLlLloners efforL Lo nulllfy boLh Lhe LeLLer of lnsLrucLlon and Lhe
lmplemenLlng rules and regulaLlons becomes even more apparenL conslderlng hls
fallure Lo lay Lhe necessary facLual foundaLlon Lo rebuL Lhe presumpLlon of valldlLy
So lL was held ln tmltoMolote notel ooJ Motel Opetotots Assoclotloo loc v clty
Moyot of Moollo
28
1he raLlonale was clearly seL forLh ln an excerpL from a declslon
of !usLlce 8randers of Lhe Amerlcan Supreme CourL quoLed ln Lhe oplnlon 1he
sLaLuLe here quesLloned deals wlLh a sub[ecL clearly wlLhln Lhe scope of Lhe pollce
power We are asked Lo declare lL vold on Lhe ground LhaL Lhe speclflc meLhod of
regulaLlon prescrlbed ls unreasonable and hence deprlves Lhe plalnLlff of due
process of law As underlylng quesLlons of facL may condlLlon Lhe consLlLuLlonallLy
of leglslaLlon of Lhls characLer Lhe presumpLlon of consLlLuLlonallLy musL prevall ln
Lhe absence of some facLual foundaLlon of record ln overLhrowlng Lhe sLaLuLe
29

4 nor dld Lhe SollclLor Ceneral as he very well could rely solely on such rebuLLed
presumpLlon of valldlLy As was polnLed ouL ln hls Answer 1he resldenL cerLalnly
had ln hls possesslon Lhe necessary sLaLlsLlcal lnformaLlon and daLa aL Lhe Llme he
lssued sald leLLer of lnsLrucLlons and such facLual foundaLlon cannoL be defeaLed by
peLlLloners naked asserLlon LhaL early warnlng devlces are noL Loo vlLal Lo Lhe
prevenLlon of nlghLLlme vehlcular accldenLs because allegedly only 390 or 13 per
cenL of Lhe supposed 26000 moLor vehlcle accldenLs LhaL ln 1976 lnvolved rearend
colllslons (p 12 of peLlLlon) eLlLloners sLaLlsLlcs ls noL backed up by demonsLrable
daLa on record As apLly sLaLed by Lhls Ponorable CourL lurLher lL admlLs of no
doubL Lherefore LhaL Lhere belng a presumpLlon of valldlLy Lhe necesslLy for
evldence Lo rebuL lL ls unavoldable unless Lhe sLaLuLe or ordlnance ls vold on lLs
face whlch ls noL Lhe case here * * * 8uL even as g Lhe verlLy of peLlLloners
sLaLlsLlcs ls LhaL noL reason enough Lo requlre Lhe lnsLallaLlon of early warnlng
devlces Lo prevenL anoLher 390 rearend colllslons LhaL could mean Lhe deaLh of
390 or more llllplnos and Lhe deaLhs LhaL could llkewlse resulL from headon or
fronLal colllslons wlLh sLalled vehlcles?
30
lL ls qulLe manlfesL Lhen LhaL Lhe lssuance
of such LeLLer of lnsLrucLlon ls encased ln Lhe armor of prlor careful sLudy by Lhe
LxecuLlve ueparLmenL 1o seL lL aslde for alleged repugnancy Lo Lhe due process
clause ls Lo glve sancLlon Lo con[ecLural clalms LhaL exceeded even Lhe broadesL
permlsslble llmlLs of a pleaders well known penchanL for exaggeraLlon
3 1he raLher wlld and fanLasLlc naLure of Lhe charge of oppresslveness of Lhls LeLLer
of lnsLrucLlon was exposed ln Lhe Answer of Lhe SollclLor Ceneral Lhus Such early
warnlng devlce requlremenL ls noL an expeoslve teJooJoocy nor oppresslve for car
owners whose cars are already equlpped wlLh 1) bllnklng llghLs ln Lhe fore and afL of
sald moLor vehlcles 2) baLLerypowered bllnklng llghLs lnslde moLor vehlcles 3)
bullLln reflecLorlzed Lapes on fronL and rear bumpers of moLor vehlcles or 4)
wellllghLed Lwo (2) peLroleum lamps (Lhe kloke) * * * because 8elng unlversal
among Lhe slgnaLory counLrles Lo Lhe sald 1968 vlenna ConvenLlons and vlslble
even under adverse condlLlons aL a dlsLance of aL leasL 400 meLers any moLorlsL
from Lhls counLry or from any parL of Lhe world who sees a reflecLorlzed
recLangular early seamlng devlce lnsLalled on Lhe roads hlghways or expressways
wlll conclude wlLhouL Lhlnklng LhaL somewhere along Lhe Lravelled porLlon of LhaL
189

road hlghway or expressway Lhere ls a moLor vehlcle whlch ls sLaLlonary sLalled
or dlsabled whlch obsLrucLs or endangers passlng Lrafflc Cn Lhe oLher hand a
moLorlsL who sees any of Lhe aforemenLloned oLher bullL ln warnlng devlces or Lhe
peLroleum lamps wlll noL lmmedlaLely geL adequaLe advance warnlng because he
wlll sLlll Lhlnk whaL LhaL bllnklng llghL ls all abouL ls lL an emergency vehlcle? ls lL a
law enforcemenL car? ls lL an ambulance? Such confuslon or uncerLalnLy ln Lhe mlnd
of Lhe moLorlsL wlll Lhus lncrease raLher Lhan decrease Lhe danger of colllslon
31

6 nor dld Lhe oLher exLravaganL asserLlons of consLlLuLlonal deflclency go
unrefuLed ln Lhe Answer of Lhe SollclLor Ceneral 1here ls noLhlng ln Lhe quesLloned
LeLLer of lnsLrucLlon no 229 as amended or ln AdmlnlsLraLlve Crder no 1 whlch
requlres or compels moLor vehlcle owners Lo purchase Lhe early warnlng devlce
prescrlbed Lhereby All LhaL ls requlred ls for moLor vehlcle owners concerned llke
peLlLloner Lo equlp Lhelr moLor vehlcles wlLh a palr of Lhls early warnlng devlce ln
quesLlon procurlng or obLalnlng Lhe same from whaLever source ln facL wlLh a
llLLle of lndusLry and pracLlcal lngenulLy moLor vehlcle owners can even personally
make or produce Lhls early warnlng devlce so long as Lhe same subsLanLlally
conforms wlLh Lhe speclflcaLlons lald down ln sald leLLer of lnsLrucLlon and
admlnlsLraLlve order Accordlngly Lhe early warnlng devlce requlremenL can nelLher
be oppresslve onerous lmmoral nor conflscaLory much less does lL make
manufacLurers and dealers of sald devlces lnsLanL mllllonalres aL Lhe expense of car
owners as peLlLloner so sweeplngly concludes * * * eLlLloners fear LhaL wlLh Lhe
early warnlng devlce requlremenL a more subLle rackeL may be commlLLed by Lhose
called upon Lo enforce lL * * * ls an unfounded speculaLlon 8esldes LhaL
unscrupulous offlclals may Lry Lo enforce sald requlremenL ln an unreasonable
manner or Lo an unreasonable degree does noL render Lhe same lllegal or lmmoral
where as ln Lhe lnsLanL case Lhe challenged LeLLer of lnsLrucLlon no 229 and
lmplemenLlng order dlsclose none of Lhe consLlLuLlonal defecLs alleged agalnsL lL
32

7 lL does appear clearly LhaL peLlLloners ob[ecLlon Lo Lhls LeLLer of lnsLrucLlon ls noL
premlsed on lack of power Lhe [usLlflcaLlon for a flndlng of unconsLlLuLlonallLy buL
on Lhe pesslmlsLlc noL Lo say negaLlve vlew he enLerLalns as Lo lLs wlsdom 1haL
approach lL puL lL aL lLs mlldesL ls dlsLlngulshed lf LhaL ls Lhe approprlaLe word by
lLs unorLhodoxy lL bears repeaLlng LhaL Lhls CourL ln Lhe language of !usLlce
Laurel does noL pass upon quesLlons of wlsdom [usLlce or expedlency of
leglslaLlon As expressed by !usLlce 1uason lL ls noL Lhe provlnce of Lhe courLs Lo
supervlse leglslaLlon and keep lL wlLhln Lhe bounds of proprleLy and common sense
1haL ls prlmarlly and excluslvely a leglslaLlve concern 1here can be no posslble
ob[ecLlon Lhen Lo Lhe observaLlon of !usLlce MonLemayor As long as laws do noL
vlolaLe any ConsLlLuLlonal provlslon Lhe CourLs merely lnLerpreL and apply Lhem
regardless of wheLher or noL Lhey are wlse or saluLary lor Lhey accordlng Lo !usLlce
Labrador are noL supposed Lo overrlde leglLlmaLe pollcy and * * * never lnqulre
lnLo Lhe wlsdom of Lhe law lL ls Lhus seLLled Lo paraphrase Chlef !usLlce
Concepclon ln Conzales v Commlsslon on LlecLlons LhaL only congresslonal power
or compeLence noL Lhe wlsdom of Lhe acLlon Laken may be Lhe basls for declarlng
a sLaLuLe lnvalld 1hls ls as lL oughL Lo be 1he prlnclple of separaLlon of powers has
ln Lhe maln wlsely allocaLed Lhe respecLlve auLhorlLy of each deparLmenL and
conflned lLs [urlsdlcLlon Lo such a sphere 1here would Lhen be lnLruslon noL
allowable under Lhe ConsLlLuLlon lf on a maLLer lefL Lo Lhe dlscreLlon of a coordlnaLe
branch Lhe [udlclary would subsLlLuLe lLs own lf Lhere be adherence Lo Lhe rule of
law as Lhere oughL Lo be Lhe lasL offender should be courLs of [usLlce Lo whlch
rlghLly llLlganLs submlL Lhelr conLroversy preclsely Lo malnLaln unlmpalred Lhe
supremacy of legal norms and prescrlpLlons 1he aLLack on Lhe valldlLy of Lhe
challenged provlslon llkewlse lnsofar as Lhere may be ob[ecLlons even lf valld and
cogenL on ls wlsdom cannoL be susLalned
33

8 1he alleged lnfrlngemenL of Lhe fundamenLal prlnclple of nondelegaLlon of
leglslaLlve power ls equally wlLhouL any supporL wellseLLled legal docLrlnes Pad
peLlLloner Laken Lhe Lrouble Lo acqualnL hlmself wlLh auLhorlLaLlve pronouncemenLs
from Lhls 1rlbunal he would noL have Lhe LemerlLy Lo make such an asserLlon An
exempL from Lhe aforeclLed declslon of Jo v tlcto sheds llghL on Lhe maLLer 1o
avold Lhe LalnL of unlawful delegaLlon Lhere musL be a sLandard whlch lmplles aL
Lhe very leasL LhaL Lhe leglslaLure lLself deLermlnes maLLers of prlnclple and lays
down fundamenLal pollcy CLherwlse Lhe charge of compleLe abdlcaLlon may be
hard Lo repel A sLandard Lhus deflnes leglslaLlve pollcy marks lLs maps ouL lLs
boundarles and speclfles Lhe publlc agency Lo apply lL lL lndlcaLes Lhe
clrcumsLances under whlch Lhe leglslaLlve command ls Lo be effecLed lL ls Lhe
crlLerlon by whlch leglslaLlve purpose may be carrled ouL 1hereafLer Lhe execuLlve
or admlnlsLraLlve offlce deslgnaLed may ln pursuance of Lhe above guldellnes
promulgaLe supplemenLal rules and regulaLlons 1he sLandard may be elLher
express or lmplled lf Lhe former Lhe nondelegaLlon ob[ecLlon ls easlly meL 1he
sLandard Lhough does noL have Lo be spelled ouL speclflcally lL could be lmplled
from Lhe pollcy and purpose of Lhe acL consldered as a whole ln Lhe 8eflecLor Law
clearly Lhe leglslaLlve ob[ecLlve ls publlc safeLy WhaL ls soughL Lo be aLLalned as ln
cololooq v wlllloms ls safe LranslL upon Lhe roads 1hls ls Lo adhere Lo Lhe
recognlLlon glven expresslon by !usLlce Laurel ln a declslon announced noL Loo long
afLer Lhe ConsLlLuLlon came lnLo force and effecL LhaL Lhe prlnclple of non
delegaLlon has been made Lo adapL lLself Lo Lhe complexlLles of modern
governmenLs glvlng rlse Lo Lhe adopLlon wlLhln cerLaln llmlLs of Lhe prlnclple of
subordlnaLe leglslaLlon noL only ln Lhe unlLed SLaLes and Lngland buL ln pracLlcally
all modern governmenLs Pe conLlnued Accordlngly wlLh Lhe growlng complexlLy
of modern llfe Lhe mulLlpllcaLlon of Lhe sub[ecLs of governmenLal regulaLlon and
Lhe lncreased dlfflculLy of admlnlsLerlng Lhe laws Lhere ls a consLanLly growlng
Lendency Loward Lhe delegaLlon of greaLer powers by Lhe leglslaLure and Loward
Lhe approval of Lhe pracLlce by Lhe courLs ConslsLency wlLh Lhe concepLual
approach requlres Lhe remlnder LhaL whaL ls delegaLed ls auLhorlLy nonleglslaLlve
190

ln characLer Lhe compleLeness of Lhe sLaLuLe when lL leaves Lhe hands of Congress
belng assumed
34

9 1he concluslon reached by Lhls CourL LhaL Lhls peLlLlon musL be dlsmlssed ls
relnforced by Lhls conslderaLlon 1he peLlLlon lLself quoLed Lhese Lwo whereas
clauses of Lhe assalled LeLLer of lnsLrucLlon Whereas Lhe hazards posed by such
obsLrucLlons Lo Lrafflc have been recognlzed by lnLernaLlonal bodles concerned wlLh
Lrafflc safeLy Lhe 1968 vlenna ConvenLlon on 8oad Slgns and Slgnals and Lhe unlLed
naLlons CrganlzaLlon (un) Whereas Lhe sald vlonna ConvenLlon whlch was
raLlfled by Lhe hlllpplne CovernmenL under u no 207 recommended Lhe
enacLmenL of local leglslaLlon for Lhe lnsLallaLlon of road safeLy slgns and devlces *
* *
33
lL cannoL be dlspuLed Lhen LhaL Lhls ueclaraLlon of rlnclple found ln Lhe
ConsLlLuLlon possesses relevance 1he hlllpplnes * * * adopLs Lhe generally
accepLed prlnclples of lnLernaLlonal law as parL of Lhe law of Lhe land * * *
36
1he
1968 vlenna ConvenLlon on 8oad Slgns and Slgnals ls lmpressed wlLh such a
characLer lL ls noL for Lhls counLry Lo repudlaLe a commlLmenL Lo whlch lL had
pledged lLs word 1he concepL of locto soot setvooJo sLands ln Lhe way of such an
aLLlLude whlch ls moreover aL war wlLh Lhe prlnclple of lnLernaLlonal morallLy
10 1haL ls abouL all LhaL needs be sald 1he raLher courL reference Lo equal
proLecLlon dld noL even ellclL any aLLempL on Lhe arL of eLlLloner Lo subsLanLlaLe
ln a manner clear poslLlve and caLegorlcal why such a casual observaLlon should be
Laken serlously ln no case ls Lhere a more approprlaLe occaslon for lnslsLence on
whaL was referred Lo as Lhe general rule ln 5ootloqo v lot osteto 8tooJcostloq
co
37
namely LhaL Lhe consLlLuLlonallLy of a law wlg noL be consldered unless Lhe
polnL ls speclally pleaded lnslsLed upon and adequaLely argued
38
Lqual
proLecLlon ls noL a Lallsmanlc formula aL Lhe mere lnvocaLlon of whlch a parLy Lo a
lawsulL can rlghLfully expecL LhaL success wlll crown hls efforLs 1he law ls anyLhlng
buL LhaL
WPL8LlC8L Lhls peLlLlon ls dlsmlssed 1he resLralnlng order ls llfLed 1hls declslon
ls lmmedlaLely execuLory no cosLs

Gk No L799S May 31 19S7
LAC ICCNG VS LkNANDL2
LA88AuC8 I
l 1be cose ooJ lssoe lo qeoetol
1hls CourL has before lL Lhe dellcaLe Lask of passlng upon Lhe valldlLy and
consLlLuLlonallLy of a leglslaLlve enacLmenL fundamenLal and farreachlng ln
slgnlflcance 1he enacLmenL poses quesLlons of due process pollce power and
equal proLecLlon of Lhe laws lL also poses an lmporLanL lssue of facL LhaL ls
wheLher Lhe condlLlons whlch Lhe dlspuLed law purporLs Lo remedy really or
acLually exlsL AdmlLLedly sprlnglng from a deep mlllLanL and poslLlve naLlonallsLlc
lmpulse Lhe law purporLs Lo proLecL clLlzen and counLry from Lhe allen reLaller
1hrough lL and wlLhln Lhe fleld of economy lL regulaLes Congress aLLempLs Lo
LranslaLe naLlonal asplraLlons for economlc lndependence and naLlonal securlLy
rooLed ln Lhe drlve and urge for naLlonal survlval and welfare lnLo a concreLe and
Langlble measures deslgned Lo free Lhe naLlonal reLaller from Lhe compeLlng
domlnance of Lhe allen so LhaL Lhe counLry and Lhe naLlon may be free from a
supposed economlc dependence and bondage uo Lhe facLs and clrcumsLances
[usLlfy Lhe enacLmenL?
ll lettloeot ptovlsloos of kepobllc Act No 1180
8epubllc AcL no 1180 ls enLlLled An AcL Lo 8egulaLe Lhe 8eLall 8uslness ln effecL
lL naLlonallzes Lhe reLall Lrade buslness 1he maln provlslons of Lhe AcL are (1) a
prohlblLlon agalnsL persons noL clLlzens of Lhe hlllpplnes and agalnsL assoclaLlons
parLnershlps or corporaLlons Lhe caplLal of whlch are noL wholly owned by clLlzens
of Lhe hlllpplnes from engaglng dlrecLly or lndlrecLly ln Lhe reLall Lrade (2) an
excepLlon from Lhe above prohlblLlon ln favor of allens acLually engaged ln sald
buslness on May 13 1934 who are allowed Lo conLlnue Lo engaged Lhereln unless
Lhelr llcenses are forfelLed ln accordance wlLh Lhe law unLll Lhelr deaLh or volunLary
reLlremenL ln case of naLural persons and for Len years afLer Lhe approval of Lhe
AcL or unLll Lhe explraLlon of Lerm ln case of [urldlcal persons (3) an excepLlon
Lherefrom ln favor of clLlzens and [urldlcal enLlLles of Lhe unlLed SLaLes (4) a
provlslon for Lhe forfelLure of llcenses (Lo engage ln Lhe reLall buslness) for vlolaLlon
of Lhe laws on naLlonallzaLlon conLrol welghLs and measures and labor and oLher
laws relaLlng Lo Lrade commerce and lndusLry (3) a prohlblLlon agalnsL Lhe
esLabllshmenL or openlng by allens acLually engaged ln Lhe reLall buslness of
addlLlonal sLores or branches of reLall buslness (6) a provlslon requlrlng allens
acLually engaged ln Lhe reLall buslness Lo presenL for reglsLraLlon wlLh Lhe proper
auLhorlLles a verlfled sLaLemenL concernlng Lhelr buslnesses glvlng among oLher
maLLers Lhe naLure of Lhe buslness Lhelr asseLs and llablllLles and Lhelr offlces and
prlnclpal offlces of [udlclal enLlLles and (7) a provlslon allowlng Lhe helrs of allens
now engaged ln Lhe reLall buslness who dle Lo conLlnue such buslness for a perlod
of slx monLhs for purposes of llquldaLlon
lll CtoooJs opoo wblcb petltloo ls boseJAoswet tbeteto
eLlLloner for and ln hls own behalf and on behalf of oLher allen resldenLs
corporaLlons and parLnershlps adversely affecLed by Lhe provlslons of 8epubllc AcL
no 1180 broughL Lhls acLlon Lo obLaln a [udlclal declaraLlon LhaL sald AcL ls
unconsLlLuLlonal and Lo en[oln Lhe SecreLary of llnance and all oLher persons acLlng
under hlm parLlcularly clLy and munlclpal Lreasurers from enforclng lLs provlslons
eLlLloner aLLacks Lhe consLlLuLlonallLy of Lhe AcL conLendlng LhaL (1) lL denles Lo
allen resldenLs Lhe equal proLecLlon of Lhe laws and deprlves of Lhelr llberLy and
properLy wlLhouL due process of law (2) Lhe sub[ecL of Lhe AcL ls noL expressed or
comprehended ln Lhe LlLle Lhereof (3) Lhe AcL vlolaLes lnLernaLlonal and LreaLy
obllgaLlons of Lhe 8epubllc of Lhe hlllpplnes (4) Lhe provlslons of Lhe AcL agalnsL
Lhe Lransmlsslon by allens of Lhelr reLall buslness Lhru heredlLary successlon and
Lhose requlrlng 100 llllplno caplLallzaLlon for a corporaLlon or enLlLy Lo enLlLle lL Lo
191

engage ln Lhe reLall buslness vlolaLe Lhe splrlL of SecLlons 1 and 3 ArLlcle xlll and
SecLlon 8 of ArLlcle xlv of Lhe ConsLlLuLlon
ln answer Lhe SollclLorCeneral and Lhe llscal of Lhe ClLy of Manlla conLend LhaL
(1) Lhe AcL was passed ln Lhe valld exerclse of Lhe pollce power of Lhe SLaLe whlch
exerclse ls auLhorlzed ln Lhe ConsLlLuLlon ln Lhe lnLeresL of naLlonal economlc
survlval (2) Lhe AcL has only one sub[ecL embraced ln Lhe LlLle (3) no LreaLy or
lnLernaLlonal obllgaLlons are lnfrlnged (4) as regards heredlLary successlon only Lhe
form ls affecLed buL Lhe value of Lhe properLy ls noL lmpalred and Lhe lnsLlLuLlon of
lnherlLance ls only of sLaLuLory orlgln
lv ltellmlooty cooslJetotloo of leqol ptloclples lovolveJ
a 1he pollce power
1here ls no quesLlon LhaL Lhe AcL was approved ln Lhe exerclse of Lhe pollce power
buL peLlLloner clalms LhaL lLs exerclse ln Lhls lnsLance ls aLLended by a vlolaLlon of
Lhe consLlLuLlonal requlremenLs of due process and equal proLecLlon of Lhe laws
8uL before proceedlng Lo Lhe conslderaLlon and resoluLlon of Lhe ulLlmaLe lssue
lnvolved lL would be well Lo bear ln mlnd cerLaln baslc and fundamenLal albelL
prellmlnary conslderaLlons ln Lhe deLermlnaLlon of Lhe ever recurrenL confllcL
beLween pollce power and Lhe guaranLees of due process and equal proLecLlon of
Lhe laws WhaL ls Lhe scope of pollce power and how are Lhe due process and equal
proLecLlon clauses relaLed Lo lL? WhaL ls Lhe provlnce and power of Lhe leglslaLure
and whaL ls Lhe funcLlon and duLy of Lhe courLs? 1hese conslderaLlon musL be
clearly and correcLly undersLood LhaL Lhelr appllcaLlon Lo Lhe facLs of Lhe case may
be broughL forLh wlLh clarlLy and Lhe lssue accordlngly resolved
lL has been sald Lhe pollce power ls so far reachlng ln scope LhaL lL has become
almosL lmposslble Lo llmlL lLs sweep As lL derlves lLs exlsLence from Lhe very
exlsLence of Lhe SLaLe lLself lL does noL need Lo be expressed or deflned ln lLs
scope lL ls sald Lo be coexLenslve wlLh selfproLecLlon and survlval and as such lL ls
Lhe mosL poslLlve and acLlve of all governmenLal processes Lhe mosL essenLlal
lnslsLenL and llllmlLable Lspeclally ls lL so under a modern democraLlc framework
where Lhe demands of socleLy and of naLlons have mulLlplled Lo almosL
unlmaglnable proporLlons Lhe fleld and scope of pollce power has become almosL
boundless [usL as Lhe flelds of publlc lnLeresL and publlc welfare have become
almosL allembraclng and have Lranscended human foreslghL CLherwlse sLaLed as
we cannoL foresee Lhe needs and demands of publlc lnLeresL and welfare ln Lhls
consLanLly changlng and progresslve world so we cannoL dellmlL beforehand Lhe
exLenL or scope of pollce power by whlch and Lhrough whlch Lhe SLaLe seeks Lo
aLLaln or achleve lnLeresL or welfare So lL ls LhaL ConsLlLuLlons do noL deflne Lhe
scope or exLenL of Lhe pollce power of Lhe SLaLe whaL Lhey do ls Lo seL forLh Lhe
llmlLaLlons Lhereof 1he mosL lmporLanL of Lhese are Lhe due process clause and Lhe
equal proLecLlon clause
b LlmlLaLlons on pollce power
1he baslc llmlLaLlons of due process and equal proLecLlon are found ln Lhe followlng
provlslons of our ConsLlLuLlon
SLC1lCn 1(1) no person shall be deprlved of llfe llberLy or properLy wlLhouL due
process of law nor any person be denled Lhe equal proLecLlon of Lhe laws (ArLlcle
lll hll ConsLlLuLlon)
1hese consLlLuLlonal guaranLees whlch embody Lhe essence of lndlvldual llberLy and
freedom ln democracles are noL llmlLed Lo clLlzens alone buL are admlLLedly
unlversal ln Lhelr appllcaLlon wlLhouL regard Lo any dlfferences of race of color or
of naLlonallLy (?lck Wo vs Popklns 30 L ed 220 226)
c 1he equal proLecLlon clause
1he equal proLecLlon of Lhe law clause ls agalnsL undue favor and lndlvldual or class
prlvllege as well as hosLlle dlscrlmlnaLlon or Lhe oppresslon of lnequallLy lL ls noL
lnLended Lo prohlblL leglslaLlon whlch ls llmlLed elLher ln Lhe ob[ecL Lo whlch lL ls
dlrecLed or by LerrlLory wlLhln whlch ls Lo operaLe lL does noL demand absoluLe
equallLy among resldenLs lL merely requlres LhaL all persons shall be LreaLed allke
ooJet llke cltcomstooces ooJ cooJltloos boLh as Lo prlvlleges conferred and
llablllLles enforced 1he equal proLecLlon clause ls noL lnfrlnged by leglslaLlon whlch
applles only Lo Lhose persons falllng wlLhln a speclfled class lf lL applles allke Lo all
persons wlLhln such class and reasonable grounds exlsLs for maklng a dlsLlncLlon
beLween Lhose who fall wlLhln such class and Lhose who do noL (2 Cooley
ConsLlLuLlonal LlmlLaLlons 824823)
d 1he due process clause
1he due process clause has Lo do wlLh Lhe reasonableness of leglslaLlon enacLed ln
pursuance of Lhe pollce power ls Lhere publlc lnLeresL a publlc purpose ls publlc
welfare lnvolved? ls Lhe AcL reasonably necessary for Lhe accompllshmenL of Lhe
leglslaLures purpose ls lL noL unreasonable arblLrary or oppresslve? ls Lhere
sufflclenL foundaLlon or reason ln connecLlon wlLh Lhe maLLer lnvolved or has Lhere
noL been a caprlclous use of Lhe leglslaLlve power? Can Lhe alms concelved be
achleved by Lhe means used or ls lL noL merely an un[usLlfled lnLerference wlLh
prlvaLe lnLeresL? 1hese are Lhe quesLlons LhaL we ask when Lhe due process LesL ls
applled
1he confllcL Lherefore beLween pollce power and Lhe guaranLees of due process
and equal proLecLlon of Lhe laws ls more apparenL Lhan real roperly relaLed Lhe
power and Lhe guaranLees are supposed Lo coexlsL 1he balanclng ls Lhe essence or
shall lL be sald Lhe lndlspensable means for Lhe aLLalnmenL of leglLlmaLe asplraLlons
of any democraLlc socleLy 1here can be no absoluLe power whoever exerclse lL for
LhaL would be Lyranny ?eL Lhere can nelLher be absoluLe llberLy for LhaL would
mean llcense and anarchy So Lhe SLaLe can deprlve persons of llfe llberLy and
properLy provlded Lhere ls due process of law and persons may be classlfled lnLo
classes and groups provlded everyone ls glven Lhe equal proLecLlon of Lhe law 1he
LesL or sLandard as always ls reason 1he pollce power leglslaLlon musL be flrmly
grounded on publlc lnLeresL and welfare and a reasonable relaLlon musL exlsL
192

beLween purposes and means And lf dlsLlncLlon and classlflcaLlon has been made
Lhere musL be a reasonable basls for sald dlsLlncLlon
e leqlslotlve Jlsctetloo oot sobject to joJlclol tevlew
now ln Lhls maLLer of equlLable balanclng whaL ls Lhe proper place and role of Lhe
courLs? lL musL noL be overlooked ln Lhe flrsL place LhaL Lhe leglslaLure whlch ls
Lhe consLlLuLlonal reposlLory of pollce power and exerclses Lhe prerogaLlve of
deLermlnlng Lhe pollcy of Lhe SLaLe ls by force of clrcumsLances prlmarlly Lhe [udge
of necesslLy adequacy or reasonableness and wlsdom of any law promulgaLed ln
Lhe exerclse of Lhe pollce power or of Lhe measures adopLed Lo lmplemenL Lhe
publlc pollcy or Lo achleve publlc lnLeresL Cn Lhe oLher hand courLs alLhough
zealous guardlans of lndlvldual llberLy and rlghL have neverLheless evlnced a
relucLance Lo lnLerfere wlLh Lhe exerclse of Lhe leglslaLlve prerogaLlve 1hey have
done so early where Lhere has been a clear paLenL or palpable arblLrary and
unreasonable abuse of Lhe leglslaLlve prerogaLlve Moreover courLs are noL
supposed Lo overrlde leglLlmaLe pollcy and courLs never lnqulre lnLo Lhe wlsdom of
Lhe law
v cooomlc ptoblems sooqbt to be temeJleJ
WlLh Lhe above conslderaLlons ln mlnd we wlll now proceed Lo delve dlrecLly lnLo
Lhe lssue lnvolved lf Lhe dlspuLed leglslaLlon were merely a regulaLlon as lLs LlLle
lndlcaLes Lhere would be no quesLlon LhaL lL falls wlLhln Lhe leglLlmaLe scope of
leglslaLlve power 8uL lL goes furLher and prohlblLs a group of resldenLs Lhe allens
from engaglng Lhereln 1he problem becomes more complex because lLs sub[ecL ls a
common Lrade or occupaLlon as old as socleLy lLself whlch from Lhe lmmemorlal
has always been open Lo resldenLs lrrespecLlve of race color or clLlzenshlp
a lmporLance of reLall Lrade ln Lhe economy of Lhe naLlon
ln a prlmlLlve economy where famllles produce all LhaL Lhey consume and consume
all LhaL Lhey produce Lhe dealer of course ls unknown 8uL as group llfe develops
and famllles begln Lo llve ln communlLles produclng more Lhan whaL Lhey consume
and needlng an lnflnlLe number of Lhlngs Lhey do noL produce Lhe dealer comes
lnLo exlsLence As vlllages develop lnLo blg communlLles and speclallzaLlon ln
producLlon beglns Lhe dealers lmporLance ls enhanced under modern condlLlons
and sLandards of llvlng ln whlch mans needs have mulLlplled and dlverslfled Lo
unllmlLed exLenLs and proporLlons Lhe reLaller comes as essenLlal as Lhe producer
because Lhru hlm Lhe lnflnlLe varleLy of arLlcles goods and needed for dally llfe are
placed wlLhln Lhe easy reach of consumers 8eLall dealers perform Lhe funcLlons of
caplllarles ln Lhe human body Lhru whlch all Lhe needed food and supplles are
mlnlsLered Lo members of Lhe communlLles comprlslng Lhe naLlon
1here cannoL be any quesLlon abouL Lhe lmporLance of Lhe reLaller ln Lhe llfe of Lhe
communlLy Pe mlnlsLers Lo Lhe resldenLs dally needs food ln all lLs lncreaslng
forms and Lhe varlous llLLle gadgeLs and Lhlngs needed for home and dally llfe Pe
provldes hls cusLomers around hls sLore wlLh Lhe rlce or corn Lhe flsh Lhe salL Lhe
vlnegar Lhe splces needed for Lhe dally cooklng Pe has cloLhs Lo sell even Lhe
needle and Lhe Lhread Lo sew Lhem or darn Lhe cloLhes LhaL wear ouL 1he reLaller
Lherefore from Lhe lowly peddler Lhe owner of a small sotlsotl sLore Lo Lhe
operaLor of a deparLmenL sLore or a supermarkeL ls so much a parL of dayLoday
exlsLence
b 1he allen reLallers LralL
1he allen reLaller musL have sLarLed plylng hls Lrades ln Lhls counLry ln Lhe blgger
cenLers of populaLlon (1lme Lhere was when he was unknown ln provlnclal Lowns
and vlllages) Slowly buL gradually be lnvaded Lowns and vlllages now he
predomlnaLes ln Lhe clLles and blg cenLers of populaLlon Pe even ploneers ln far
away nooks where Lhe beglnnlngs of communlLy llfe appear mlnlsLerlng Lo Lhe dally
needs of Lhe resldenLs and purchaslng Lhelr agrlculLural produce for sale ln Lhe
Lowns lL ls an undenlable facL LhaL ln many communlLles Lhe allen has replaced Lhe
naLlve reLaller Pe has shown ln Lhls Lrade lndusLry wlLhouL llmlL and Lhe paLlence
and forbearance of a slave
uerogaLory eplLheLs are hurled aL hlm buL he laughs Lhese off wlLhouL murmur
lnsulLs of lllbred and lnsolenL nelghbors and cusLomers are made ln hls face buL he
heeds Lhem noL and he forgeLs and forglves 1he communlLy Lakes noLe of hlm as
he appears Lo be harmless and exLremely useful
c Alleged allen conLrol and domlnance
1here ls a general feellng on Lhe parL of Lhe publlc whlch appears Lo be Lrue Lo facL
abouL Lhe conLrolllng and domlnanL poslLlon LhaL Lhe allen reLaller holds ln Lhe
naLlons economy lood and oLher essenLlals cloLhlng almosL all arLlcles of dally llfe
reach Lhe resldenLs mosLly Lhrough hlm ln blg clLles and cenLers of populaLlon he
has acqulred noL only predomlnance buL apparenL conLrol over dlsLrlbuLlon of
almosL all klnds of goods such as lumber hardware LexLlles grocerles drugs
sugar flour garllc and scores of oLher goods and arLlcles And were lL noL for some
naLlonal corporaLlons llke Lhe narlc Lhe namarco Lhe lacomas and Lhe Acefa hls
conLrol over prlnclpal foods and producLs would easlly become full and compleLe
eLlLloner denles LhaL Lhere ls allen predomlnance and conLrol ln Lhe reLall Lrade ln
one breaLh lL ls sald LhaL Lhe fear ls unfounded and Lhe LhreaL ls lmaglned ln
anoLher lL ls charged LhaL Lhe law ls merely Lhe resulL of radlcallsm and pure and
unabashed naLlonallsm Allenage lL ls sald ls noL an elemenL of conLrol also so
many unmanageable facLors ln Lhe reLall buslness make conLrol vlrLually lmposslble
1he flrsL argumenL whlch brlngs up an lssue of facL merlLs serlous conslderaLlon
1he oLhers are maLLers of oplnlon wlLhln Lhe excluslve compeLence of Lhe
leglslaLure and beyond our prerogaLlve Lo pass upon and declde
1he besL evldence are Lhe sLaLlsLlcs on Lhe reLall Lrade whlch puL down Lhe flgures
ln black and whlLe 8eLween Lhe consLlLuLlonal convenLlon year (1933) when Lhe
fear of allen domlnaLlon and conLrol of Lhe reLall Lrade already fllled Lhe mlnds of
our leaders wlLh fears and mlsglvlngs and Lhe year of Lhe enacLmenL of Lhe
naLlonallzaLlon of Lhe reLall Lrade acL (1934) offlclal sLaLlsLlcs unmlsLakably polnL
193

ouL Lo Lhe everlncreaslng domlnance and conLrol by Lhe allen of Lhe reLall Lrade as
wlLness Lhe followlng Lables
AsseLs Cross Sales
?ear and 8eLallers
naLlonallLy
no
LsLabllshmenLs
esos
er cenL
ulsLrlbuLlon
esos
er cenL
ulsLrlbuLlon
1941
llllplno 106671 200323138 3382 174181924 3174
Chlnese 13336 118348692 3298 148813239 4421
CLhers 1646 40187090 1120 13630239 403
1947
llllplno 111107 208638946 6303 279383333 3703
Chlnese 13774 106136218 3336 203701134 4196
CLhers 334 8761260 49 4927168 101
1948 (Census)
llllplno 113631 213342264 6730 467161667 6031
Chlnese 12087 93133439 2938 294894227 3820
CLhers 422 10314673 332 9993402 129
1949
llllplno 113639 213431602 6089 462332901 3347
Chlnese 16248 123223336 3372 392414873 4336
CLhers 486 12036363 339 10078364 117
1931
llllplno 119332 224033620 6109 466038032 3307
Chlnese 17429 134323303 3660 404481384 4606
CLhers 347 8614023 231 7643327 87

AvL8ACL
ASSL1S Anu C8CSS SALLS L8 LS1A8LlSPMLn1
?ear and 8eLallers
naLlonallLy
lLem
AsseLs
(esos)
Cross
Sales
(esos)
1941
llllplno 1878 1633
Chlnese 7707 9691
CLhers 24413 8281
1947
llllplno 1878 2316
Chlnese 7707 14934
CLhers 24749 13919
1948 (Census)
llllplno 1878 4111
Chlnese 7707 24398
CLhers 24916 23686
1949
llllplno 1878 4069
Chlnese 7707 24132
CLhers 24807 20737
1931
llllplno 1877 3903
Chlnese 7707 33207
CLhers 24824 22033
(LsLlmaLed AsseLs and Cross Sales of 8eLall LsLabllshmenLs 8y ?ear and naLlonallLy
of Cwners 8enchmark 1948 Census lssued by Lhe 8ureau of Census and SLaLlsLlcs
ueparLmenL of Commerce and lndusLry pp 1819 of Answer)
194

1he above sLaLlsLlcs do noL lnclude corporaLlons and parLnershlps whlle Lhe flgures
on llllplno esLabllshmenLs already lnclude mere markeL vendors whose caplLal ls
necessarlly small
1he above flgures reveal LhaL ln percenLage dlsLrlbuLlon of assesLs and gross sales
allen parLlclpaLlon has sLeadlly lncreased durlng Lhe years lL ls Lrue of course LhaL
llllplnos have Lhe edge ln Lhe number of reLallers buL allens more Lhan make up for
Lhe numerlcal gap Lhrough Lhelr assesLs and gross sales whlch average beLween slx
and seven Llmes Lhose of Lhe very many llllplno reLallers numbers ln reLallers
here do noL lmply superlorlLy Lhe allen lnvesLs more caplLal buys and sells slx Lo
seven Llmes more and galns much more 1he same offlclal reporL polnLlng ouL Lo
Lhe known predomlnance of forelgn elemenLs ln Lhe reLall Lrade remarks LhaL Lhe
llllplno reLallers were largely engaged ln mlnor reLaller enLerprlses As observed by
respondenLs Lhe naLlve lnvesLmenL ls Lhlnly spread and Lhe llllplno reLaller ls
pracLlcally helpless ln maLLers of caplLal credlL prlce and supply
d Alleo coottol ooJ tbteot sobject of opptebeosloo lo coostltotloool cooveotloo
lL ls Lhls domlnaLlon and conLrol whlch we belleve has been sufflclenLly shown Lo
exlsL LhaL ls Lhe leglslaLures LargeL ln Lhe enacLmenL of Lhe dlspuLed naLlonallzaLlon
would never have been adopLed 1he framers of our ConsLlLuLlon also belleved ln
Lhe exlsLence of Lhls allen domlnance and conLrol when Lhey approved a resoluLlon
caLegorlcally declarlng among oLher Lhlngs LhaL lL ls Lhe sense of Lhe ConvenLlon
LhaL Lhe publlc lnLeresL requlres Lhe naLlonallzaLlon of Lhe reLall Lrade (ll
Aruego 1he lramlng of Lhe hlllpplne ConsLlLuLlon 662663 quoLed on page 67 of
eLlLloner) 1haL was LwenLyLwo years ago and Lhe evenLs slnce Lhen have noL
been elLher pleasanL or comforLlng uean Slnco of Lhe unlverslLy of Lhe hlllpplnes
College of Law commenLlng on Lhe paLrlmony clause of Lhe reamble oplnes LhaL
Lhe faLhers of our ConsLlLuLlon were merely LranslaLlng Lhe general preoccupaLlon
of llllplnos of Lhe dangers from allen lnLeresLs LhaL had already broughL under
Lhelr conLrol Lhe commerclal and oLher economlc acLlvlLles of Lhe counLry (Slnco
hll ollLlcal Law 10Lh ed p 114) and analyzlng Lhe concern of Lhe members of
Lhe consLlLuLlonal convenLlon for Lhe economlc llfe of Lhe clLlzens ln connecLlon
wlLh Lhe naLlonallsLlc provlslons of Lhe ConsLlLuLlon he says
8uL Lhere has been a general feellng LhaL allen domlnance over Lhe economlc llfe of
Lhe counLry ls noL deslrable and LhaL lf such a slLuaLlon should remaln pollLlcal
lndependence alone ls no guaranLee Lo naLlonal sLablllLy and sLrengLh llllplno
prlvaLe caplLal ls noL blg enough Lo wresL from allen hands Lhe conLrol of Lhe
naLlonal economy Moreover lL ls buL of recenL formaLlon and hence largely
lnexperlenced Llmld and heslLanL under such condlLlons Lhe governmenL as Lhe
lnsLrumenLallLy of Lhe naLlonal wlll has Lo sLep ln and assume Lhe lnlLlaLlve lf noL
Lhe leadershlp ln Lhe sLruggle for Lhe economlc freedom of Lhe naLlon ln somewhaL
Lhe same way LhaL lL dld ln Lhe crusade for pollLlcal freedom 1hus lL (Lhe
ConsLlLuLlon) envlsages an organlzed movemenL for Lhe proLecLlon of Lhe naLlon noL
only agalnsL Lhe posslblllLles of armed lnvaslon buL also agalnsL lLs economlc
sub[ugaLlon by allen lnLeresLs ln Lhe economlc fleld (hll ollLlcal Law by Slnco
10Lh ed p 476)
8ellef ln Lhe exlsLence of allen conLrol and predomlnance ls felL ln oLher quarLers
llllplno buslnessmen manufacLurers and producers belleve so Lhey fear Lhe
dangers comlng from allen conLrol and Lhey express senLlmenLs of economlc
lndependence WlLness LhereLo ls 8esoluLlon no 1 approved on !uly 18 1933 of
Lhe llfLh naLlonal convenLlon of llllplno 8uslnessmen and a slmllar resoluLlon
approved on March 20 1934 of Lhe Second naLlonal ConvenLlon of ManufacLurers
and roducers 1he man ln Lhe sLreeL also belleves and fears allen predomlnance
and conLrol so our newspapers whlch have edlLorlally polnLed ouL noL only Lo
conLrol buL Lo allen sLranglehold We Lherefore flnd allen domlnaLlon and conLrol
Lo be a facL a reallLy proved by offlclal sLaLlsLlcs and felL by all Lhe secLlons and
groups LhaL compose Lhe llllplno communlLy
e uooqets of olleo coottol ooJ Jomloooce lo tetoll
8uL Lhe dangers arlslng from allen parLlclpaLlon ln Lhe reLall Lrade does noL seem Lo
lle ln Lhe predomlnance alone Lhere ls a prevalllng feellng LhaL such predomlnance
may Lruly endanger Lhe naLlonal lnLeresL WlLh ample caplLal unlLy of purpose and
acLlon and Lhorough organlzaLlon allen reLallers and merchanLs can acL ln such
compleLe unlson and concerL on such vlLal maLLers as Lhe flxlng of prlces Lhe
deLermlnaLlon of Lhe amounL of goods or arLlcles Lo be made avallable ln Lhe
markeL and even Lhe cholce of Lhe goods or arLlcles Lhey would or would noL
paLronlze or dlsLrlbuLe LhaL fears of dlslocaLlon of Lhe naLlonal economy and of Lhe
compleLe subservlence of naLlonal economy and of Lhe consumlng publlc are noL
enLlrely unfounded naLlonals producers and consumers allke can be placed
compleLely aL Lhelr mercy 1hls ls easlly lllusLraLed Suppose an arLlcle of dally use ls
deslred Lo be prescrlbed by Lhe allens because Lhe producer or lmporLer does noL
offer Lhem sufflclenL proflLs or because a new compeLlng arLlcle offers blgger
proflLs for lLs lnLroducLlon All LhaL allens would do ls Lo agree Lo refuse Lo sell Lhe
flrsL arLlcle ellmlnaLlng lL from Lhelr sLocks offerlng Lhe new one as a subsLlLuLe
Pence Lhe producers or lmporLers of Lhe prescrlbed arLlcle or lLs consumers flnd
Lhe arLlcle suddenly ouL of Lhe prescrlbed arLlcle or lLs consumers flnd Lhe arLlcle
suddenly ouL of clrculaLlon lreedom of Lrade ls Lhus curLalled and free enLerprlse
correspondlngly suppressed
We can even go farLher Lhan LheoreLlcal lllusLraLlons Lo show Lhe pernlclous
lnfluences of allen domlnaLlon Crave abuses have characLerlzed Lhe exerclse of Lhe
reLall Lrade by allens lL ls a facL wlLhln [udlclal noLlce whlch courLs of [usLlce may
noL properly overlook or lgnore ln Lhe lnLeresLs of LruLh and [usLlce LhaL Lhere exlsLs
a general feellng on Lhe parL of Lhe publlc LhaL allen parLlclpaLlon ln Lhe reLall Lrade
has been aLLended by a pernlclous and lnLolerable pracLlces Lhe menLlon of a few
of whlch would sufflce for our purposes LhaL aL some Llme or oLher Lhey have
cornered Lhe markeL of essenLlal commodlLles llke corn and rlce creaLlng arLlflclal
scarclLles Lo [usLlfy and enhance proflLs Lo unreasonable proporLlons LhaL Lhey have
193

hoarded essenLlal foods Lo Lhe lnconvenlence and pre[udlce of Lhe consumlng
publlc so much so LhaL Lhe CovernmenL has had Lo esLabllsh Lhe naLlonal 8lce and
Corn CorporaLlon Lo save Lhe publlc from Lhelr conLlnuous hoardlng pracLlces and
Lendencles LhaL Lhey have vlolaLed prlce conLrol laws especlally on foods and
essenLlal commodlLles such LhaL Lhe leglslaLure had Lo enacL a law (Sec 9 8epubllc
AcL no 1168) auLhorlzlng Lhelr lmmedlaLe and auLomaLlc deporLaLlon for prlce
conLrol convlcLlons LhaL Lhey have secreL comblnaLlons among Lhemselves Lo
conLrol prlces cheaLlng Lhe operaLlon of Lhe law of supply and demand LhaL Lhey
have connlved Lo boycoLL honesL merchanLs and Lraders who would noL caLer or
yleld Lo Lhelr demands ln unlawful resLralnL of freedom of Lrade and enLerprlse
1hey are belleved by Lhe publlc Lo have evaded Lax laws smuggled goods and
money lnLo and ouL of Lhe land vlolaLed lmporL and exporL prohlblLlons conLrol
laws and Lhe llke ln derlslon and conLempL of lawful auLhorlLy lL ls also belleved
LhaL Lhey have engaged ln corrupLlng publlc offlclals wlLh fabulous brlbes lndlrecLly
causlng Lhe prevalence of grafL and corrupLlon ln Lhe CovernmenL As a maLLer of
facL appeals Lo unscrupulous allens have been made boLh by Lhe CovernmenL and
by Lhelr own lawful dlplomaLlc represenLaLlves acLlon whlch lmplledly admlLs a
prevalllng feellng abouL Lhe exlsLence of many of Lhe above pracLlces
1he clrcumsLances above seL forLh creaLe well founded fears LhaL worse Lhlngs may
come ln Lhe fuLure 1he presenL domlnance of Lhe allen reLaller especlally ln Lhe blg
cenLers of populaLlon Lherefore becomes a poLenLlal source of danger on
occaslons of war or oLher calamlLy We do noL have here ln Lhls counLry lsolaLed
groups of harmless allens reLalllng goods among naLlonals whaL we have are well
organlzed and powerful groups LhaL domlnaLe Lhe dlsLrlbuLlon of goods and
commodlLles ln Lhe communlLles and blg cenLers of populaLlon 1hey owe no
alleglance or loyalLy Lo Lhe SLaLe and Lhe SLaLe cannoL rely upon Lhem ln Llmes of
crlsls or emergency Whlle Lhe naLlonal holds hls llfe hls person and hls properLy
sub[ecL Lo Lhe needs of hls counLry Lhe allen may even become Lhe poLenLlal
enemy of Lhe SLaLe
f low eoocteJ lo lotetest of ootloool ecooomlc sotvlvol ooJ secotlty
We are fully saLlsfled upon a conslderaLlon of all Lhe facLs and clrcumsLances LhaL
Lhe dlspuLed law ls noL Lhe producL of raclal hosLlllLy pre[udlce or dlscrlmlnaLlon
buL Lhe expresslon of Lhe leglLlmaLe deslre and deLermlnaLlon of Lhe people Lhru
Lhelr auLhorlzed represenLaLlves Lo free Lhe naLlon from Lhe economlc slLuaLlon
LhaL has unforLunaLely been saddled upon lL rlghLly or wrongly Lo lLs dlsadvanLage
1he law ls clearly ln Lhe lnLeresL of Lhe publlc nay of Lhe naLlonal securlLy lLself and
lndlspuLably falls wlLhln Lhe scope of pollce power Lhru whlch and by whlch Lhe
SLaLe lnsures lLs exlsLence and securlLy and Lhe supreme welfare of lLs clLlzens
vl 1be pool ltotectloo llmltotloo
a Cb[ecLlons Lo allen parLlclpaLlon ln reLall Lrade 1he nexL quesLlon LhaL now
poses soluLlon ls uoes Lhe law deny Lhe equal proLecLlon of Lhe laws? As polnLed
ouL above Lhe mere facL of allenage ls Lhe rooL and cause of Lhe dlsLlncLlon
beLween Lhe allen and Lhe naLlonal as a Lrader 1he allen resldenL owes alleglance
Lo Lhe counLry of hls blrLh or hls adopLed counLry hls sLay here ls for personal
convenlence he ls aLLracLed by Lhe lure of galn and proflL Pls alm or purpose of
sLay we admlL ls nelLher llleglLlmaLe nor lmmoral buL he ls naLurally lacklng ln LhaL
splrlL of loyalLy and enLhuslasm for Lhls counLry where he Lemporarlly sLays and
makes hls llvlng or of LhaL splrlL of regard sympaLhy and conslderaLlon for hls
llllplno cusLomers as would prevenL hlm from Laklng advanLage of Lhelr weakness
and explolLlng Lhem 1he fasLer he makes hls plle Lhe earller can Lhe allen go back
Lo hls beloved counLry and hls beloved kln and counLrymen 1he experlence of Lhe
counLry ls LhaL Lhe allen reLaller has shown such uLLer dlsregard for hls cusLomers
and Lhe people on whom he makes hls proflL LhaL lL has been found necessary Lo
adopL Lhe leglslaLlon radlcal as lL may seem
AnoLher ob[ecLlon Lo Lhe allen reLaller ln Lhls counLry ls LhaL he never really makes a
genulne conLrlbuLlon Lo naLlonal lncome and wealLh Pe undoubLedly conLrlbuLes Lo
general dlsLrlbuLlon buL Lhe galns and proflLs he makes are noL lnvesLed ln
lndusLrles LhaL would help Lhe counLrys economy and lncrease naLlonal wealLh 1he
allens lnLeresL ln Lhls counLry belng merely LranslenL and Lemporary lL would
lndeed be llladvlsed Lo conLlnue enLrusLlng Lhe very lmporLanL funcLlon of reLall
dlsLrlbuLlon Lo hls hands
1he pracLlces resorLed Lo by allens ln Lhe conLrol of dlsLrlbuLlon as already polnLed
ouL above Lhelr secreL manlpulaLlons of sLocks of commodlLles and prlces Lhelr
uLLer dlsregard of Lhe welfare of Lhelr cusLomers and of Lhe ulLlmaLe happlness of
Lhe people of Lhe naLlon of whlch Lhey are mere guesLs whlch pracLlces
manlpulaLlons and dlsregard do noL aLLend Lhe exerclse of Lhe Lrade by Lhe
naLlonals show Lhe exlsLence of real and acLual poslLlve and fundamenLal
dlfferences beLween an allen and a naLlonal whlch fully [usLlfy Lhe leglslaLlve
classlflcaLlon adopLed ln Lhe reLall Lrade measure 1hese dlfferences are cerLalnly a
valld reason for Lhe SLaLe Lo prefer Lhe naLlonal over Lhe allen ln Lhe reLall Lrade
We would be dolng vlolence Lo facL and reallLy were we Lo hold LhaL no reason or
ground for a leglLlmaLe dlsLlncLlon can be found beLween one and Lhe oLher
b ulffeteoce lo olleo olms ooJ potposes sofflcleot bosls fot Jlstloctloo
1he above ob[ecLlonable characLerlsLlcs of Lhe exerclse of Lhe reLall Lrade by Lhe
allens whlch are acLual and real furnlsh sufflclenL grounds for leglslaLlve
classlflcaLlon of reLall Lraders lnLo naLlonals and allens Some may dlsagree wlLh Lhe
wlsdom of Lhe leglslaLures classlflcaLlon 1o Lhls we answer LhaL Lhls ls Lhe
prerogaLlve of Lhe lawmaklng power Slnce Lhe CourL flnds LhaL Lhe classlflcaLlon ls
acLual real and reasonable and all persons of one class are LreaLed allke and as lL
cannoL be sald LhaL Lhe classlflcaLlon ls paLenLly unreasonable and unfounded lL ls
ln duLy bound Lo declare LhaL Lhe leglslaLure acLed wlLhln lLs leglLlmaLe prerogaLlve
and lL can noL declare LhaL Lhe acL Lranscends Lhe llmlL of equal proLecLlon
esLabllshed by Lhe ConsLlLuLlon
196

8roadly speaklng Lhe power of Lhe leglslaLure Lo make dlsLlncLlons and
classlflcaLlons among persons ls noL curLalled or denled by Lhe equal proLecLlon of
Lhe laws clause 1he leglslaLlve power admlLs of a wlde scope of dlscreLlon and a
law can be vlolaLlve of Lhe consLlLuLlonal llmlLaLlon only when Lhe classlflcaLlon ls
wlLhouL reasonable basls ln addlLlon Lo Lhe auLhorlLles we have earller clLed we
can also refer Lo Lhe case of llosey vs Nototol cotboolc los co (1911) 33 L ed
369 whlch clearly and succlncLly deflned Lhe appllcaLlon of equal proLecLlon clause
Lo a law soughL Lo be volded as conLrary LhereLo
1 1he equal proLecLlon clause of Lhe lourLeenLh AmendmenL does noL Lake
from Lhe sLaLe Lhe power Lo classlfy ln Lhe adopLlon of pollce laws buL admlLs of Lhe
exerclse of Lhe wlde scope of dlscreLlon ln LhaL regard and avolds whaL ls done only
when lL ls wlLhouL any reasonable basls and Lherefore ls purely arblLrary 2 A
classlflcaLlon havlng some reasonable basls does noL offend agalnsL LhaL clause
merely because lL ls noL made wlLh maLhemaLlcal nlceLy or because ln pracLlce lL
resulLs ln some lnequallLy 3 When Lhe classlflcaLlon ln such a law ls called ln
quesLlon lf any sLaLe of facLs reasonably can be concelved LhaL would susLaln lL Lhe
exlsLence of LhaL sLaLe of facLs aL Lhe Llme Lhe law was enacLed musL be assumed 4
Cne who assalls Lhe classlflcaLlon ln such a law musL carry Lhe burden of showlng
LhaL lL does noL resL upon any reasonable basls buL ls essenLlally arblLrary
c Aotbotltles tecoqolzloq cltlzeosblp os bosls fot closslflcotloo
1he quesLlon as Lo wheLher or noL clLlzenshlp ls a legal and valld ground for
classlflcaLlon has already been afflrmaLlvely declded ln Lhls [urlsdlcLlon as well as ln
varlous courLs ln Lhe unlLed SLaLes ln Lhe case of 5mltb 8ell co vs NotlvlJoJ 40
hll 136 where Lhe valldlLy of AcL no 2761 of Lhe hlllpplne LeglslaLure was ln
lssue because of a condlLlon Lhereln llmlLlng Lhe ownershlp of vessels engaged ln
coasLwlse Lrade Lo corporaLlons formed by clLlzens of Lhe hlllpplne lslands or Lhe
unlLed SLaLes Lhus denylng Lhe rlghL Lo allens lL was held LhaL Lhe hlllpplne
LeglslaLure dld noL vlolaLe Lhe equal proLecLlon clause of Lhe hlllpplne 8lll of
8lghLs 1he leglslaLure ln enacLlng Lhe law had as ulLlmaLe purpose Lhe
encouragemenL of hlllpplne shlpbulldlng and Lhe safeLy for Lhese lslands from
forelgn lnLerlopers We held LhaL Lhls was a valld exerclse of Lhe pollce power and
all presumpLlons are ln favor of lLs consLlLuLlonallLy ln subsLance we held LhaL Lhe
llmlLaLlon of domesLlc ownershlp of vessels engaged ln coasLwlse Lrade Lo clLlzens
of Lhe hlllpplnes does noL vlolaLe Lhe equal proLecLlon of Lhe law and due process
or law clauses of Lhe hlllpplne 8lll of 8lghLs ln renderlng sald declslon we quoLed
wlLh approval Lhe concurrlng oplnlon of !usLlce !ohnson ln Lhe case of Clbboos vs
OqJeo 9 WheaL l as follows
Llcenslng acLs ln facL ln leglslaLlon are unlversally resLralnlng acLs as for
example acLs llcenslng gamlng houses reLallers of splrlLuous llquors eLc 1he acL ln
Lhls lnsLance ls dlsLlncLly of LhaL characLer and forms parL of an exLenslve sysLem
Lhe ob[ecL of whlch ls Lo encourage Amerlcan shlpplng and place Lhem on an equal
fooLlng wlLh Lhe shlpplng of oLher naLlons AlmosL every commerclal naLlon
reserves Lo lLs own sub[ecLs a monopoly of lLs coasLlng Lrade and a counLervalllng
prlvllege ln favor of Amerlcan shlpplng ls conLemplaLed ln Lhe whole leglslaLlon of
Lhe unlLed SLaLes on Lhls sub[ecL lL ls noL Lo glve Lhe vessel an Amerlcan characLer
LhaL Lhe llcense ls granLed LhaL effecL has been correcLly aLLrlbuLed Lo Lhe acL of her
enrollmenL 8uL lL ls Lo confer on her Amerlcan prlvlleges as conLra dlsLlngulshed
from forelgn and Lo preserve Lhe CovernmenL from fraud by forelgners ln
surrepLlLlously lnLrudlng Lhemselves lnLo Lhe Amerlcan commerclal marlne as well
as frauds upon Lhe revenue ln Lhe Lrade coasLwlse LhaL Lhls whole sysLem ls
pro[ecLed
1he rule ln general ls as follows
Allens are under no speclal consLlLuLlonal proLecLlon whlch forblds a classlflcaLlon
oLherwlse [usLlfled slmply because Lhe llmlLaLlon of Lhe class falls along Lhe llnes of
naLlonallLy 1haL would be requlrlng a hlgher degree of proLecLlon for allens as a
class Lhan for slmllar classes Lhan for slmllar classes of Amerlcan clLlzens 8roadly
speaklng Lhe dlfference ln sLaLus beLween clLlzens and allens consLlLuLes a basls for
reasonable classlflcaLlon ln Lhe exerclse of pollce power (2 Am !ur 468469)
ln commooweoltb vs nooo 81 n L 149 (MassachuseLLs 1907) a sLaLuLe on Lhe
llcenslng of hawkers and peddlers whlch provlded LhaL no one can obLaln a llcense
unless he ls or has declared hls lnLenLlon Lo become a clLlzen of Lhe unlLed SLaLes
was held valld for Lhe followlng reason lL may seem wlse Lo Lhe leglslaLure Lo llmlL
Lhe buslness of Lhose who are supposed Lo have regard for Lhe welfare good order
and happlness of Lhe communlLy and Lhe courL cannoL quesLlon Lhls [udgmenL and
concluslon ln 8loomflelJ vs 5tote 99 n L 309 (Chlo 1912) a sLaLuLe whlch
prevenLed cerLaln persons among Lhem allens from engaglng ln Lhe Lrafflc of
llquors was found noL Lo be Lhe resulL of race haLred or ln hosplLallLy or a
dellberaLe purpose Lo dlscrlmlnaLe buL was based on Lhe bellef LhaL an allen cannoL
be sufflclenLly acqualnLed wlLh our lnsLlLuLlons and our llfe as Lo enable hlm Lo
appreclaLe Lhe relaLlon of Lhls parLlcular buslness Lo our enLlre soclal fabrlc and
was noL Lherefore lnvalld ln Chlo ex rel clotke vs ueckebocb 274 u S 392 71 L
ed 113 (1926) Lhe uS Supreme CourL had under conslderaLlon an ordlnance of
Lhe clLy of ClnclnnaLl prohlblLlng Lhe lssuance of llcenses (pools and bllllard rooms)
Lo allens lL held LhaL plalnly lrraLlonal dlscrlmlnaLlon agalnsL allens ls prohlblLed
buL lL does noL follow LhaL allen race and alleglance may noL bear ln some lnsLances
such a relaLlon Lo a leglLlmaLe ob[ecL of leglslaLlon as Lo be made Lhe basls of
permlLLed classlflcaLlon and LhaL lL could noL sLaLe LhaL Lhe leglslaLlon ls clearly
wrong and LhaL laLlLude musL be allowed for Lhe leglslaLlve appralsemenL of local
condlLlons and for Lhe leglslaLlve cholce of meLhods for conLrolllng an apprehended
evll 1he case of 5tote vs cottol 124 n L 129 (Chlo 1919) ls a parallel case Lo Lhe
one aL bar ln Asokoto vs clty of 5eottle 210 30 (WashlngLon 1922) Lhe buslness
of pawn brooklng was consldered as havlng Lendencles ln[urlng publlc lnLeresL and
llmlLlng lL Lo clLlzens ls wlLhln Lhe scope of pollce power A slmllar sLaLuLe denylng
allens Lhe rlghL Lo engage ln aucLloneerlng was also susLalned ln wtlqbt vs Moy
197

L8A 1913 131 (MlnnesoLa 1914) So also ln Aotoo vs voo wlokle 297 l 340
(Cregon 1924) Lhe courL sald LhaL allens are [udlclally known Lo have dlfferenL
lnLeresLs knowledge aLLlLude psychology and loyalLy hence Lhe prohlblLlons of
lssuance of llcenses Lo Lhem for Lhe buslness of pawnbroker pool bllllard card
room dance hall ls noL an lnfrlngemenL of consLlLuLlonal rlghLs ln 1emplot vs
Mlcblqoo 5tote 8ootJ of xomloets 90 nW 1038 (Mlchlgan 1902) a law
prohlblLlng Lhe llcenslng of allens as barbers was held vold buL Lhe reason for Lhe
declslon was Lhe courLs flndlngs LhaL Lhe exerclse of Lhe buslness by Lhe allens does
noL ln any way affecL Lhe morals Lhe healLh or even Lhe convenlence of Lhe
communlLy ln 1okobosbl vs llsb ooJ Come commlssloo 92 L ed 1479 (1947) a
Callfornla sLaLuLe bannlng Lhe lssuance of commerclal flshlng llcenses Lo person
lnellglble Lo clLlzenshlp was held vold because Lhe law confllcLs wlLh lederal power
over lmmlgraLlon and because Lhere ls no publlc lnLeresL ln Lhe mere clalm of
ownershlp of Lhe waLers and Lhe flsh ln Lhem so Lhere was no adequaLe
[usLlflcaLlon for Lhe dlscrlmlnaLlon lL furLher added LhaL Lhe law was Lhe ouLgrowLh
of anLagonlsm Loward Lhe persons of !apanese ancesLry Powever Lwo !usLlces
dlssenLed on Lhe Lheory LhaL flshlng rlghLs have been LreaLed LradlLlonally as naLural
resources ln ltoset vs Mccoowoy 1otley co 82 led 237 (ennsylvanla 1897) a
sLaLe law whlch lmposed a Lax on every employer of forelgnborn unnaLurallzed
male persons over 21 years of age was declared vold because Lhe courL found LhaL
Lhere was no reason for Lhe classlflcaLlon and Lhe Lax was an arblLrary deducLlon
from Lhe dally wage of an employee
d Aotbotltles cootto exploloeJ
lL ls Lrue LhaL some declslons of Lhe lederal courL and of Lhe SLaLe courLs ln Lhe
unlLed SLaLes hold LhaL Lhe dlsLlncLlon beLween allens and clLlzens ls noL a valld
ground for classlflcaLlon 8uL ln Lhls declslon Lhe laws declared lnvalld were found Lo
be elLher arblLrary unreasonable or caprlclous or were Lhe resulL or producL of
raclal anLagonlsm and hosLlllLy and Lhere was no quesLlon of publlc lnLeresL
lnvolved or pursued ln o cooq oq vs 1tlolJoJ 70 L ed 1039 (1923) Lhe unlLed
SLaLes Supreme CourL declared lnvalld a hlllpplne law maklng unlawful Lhe keeplng
of books of accounL ln any language oLher Lhan Lngllsh Spanlsh or any oLher local
dlalecL buL Lhe maln reasons for Lhe declslons are (1) LhaL lf Chlnese were drlven
ouL of buslness Lhere would be no oLher sysLem of dlsLrlbuLlon and (2) LhaL Lhe
Chlnese would fall prey Lo all klnds of fraud because Lhey would be deprlved of
Lhelr rlghL Lo be advlsed of Lhelr buslness and Lo dlrecL lLs conducL 1he real reason
for Lhe declslon Lherefore ls Lhe courLs bellef LhaL no publlc beneflL would be
derlved from Lhe operaLlons of Lhe law and on Lhe oLher hand lL would deprlve
Chlnese of someLhlng lndlspensable for carrylng on Lhelr buslness ln lck wo vs
nopklos 30 L ed 220 (1883) an ordlnance conferrlng powers on offlclals Lo
wlLhhold consenL ln Lhe operaLlon of laundrles boLh as Lo persons and place was
declared lnvalld buL Lhe courL sald LhaL Lhe power granLed was arblLrary LhaL Lhere
was no reason for Lhe dlscrlmlnaLlon whlch aLLended Lhe admlnlsLraLlon and
lmplemenLaLlon of Lhe law and LhaL Lhe moLlve Lhereof was mere raclal hosLlllLy ln
5tote vs Mootqomety 47 A 163 (Malne 1900) a law prohlblLlng allens Lo engage
as hawkers and peddlers was declared vold because Lhe dlscrlmlnaLlon bore no
reasonable and [usL relaLlon Lo Lhe acL ln respecL Lo whlch Lhe classlflcaLlon was
proposed
1he case aL bar ls radlcally dlfferenL and Lhe facLs make Lhem so As we already
have sald allens do noL naLurally possess Lhe sympaLheLlc conslderaLlon and regard
for Lhe cusLomers wlLh whom Lhey come ln dally conLacL nor Lhe paLrloLlc deslre Lo
help bolsLer Lhe naLlons economy excepL ln so far as lL enhances Lhelr proflL nor
Lhe loyalLy and alleglance whlch Lhe naLlonal owes Lo Lhe land 1hese llmlLaLlons on
Lhe quallflcaLlons of Lhe allens have been shown on many occaslons and lnsLances
especlally ln Llmes of crlsls and emergency We can do no beLLer Lhan borrow Lhe
language of Aotoo vs voo wlokle 297 l 340 342 Lo drlve home Lhe reallLy and
slgnlflcance of Lhe dlsLlncLlon beLween Lhe allen and Lhe naLlonal Lhus
lL may be [udlclally known however LhaL allen comlng lnLo Lhls counLry are
wlLhouL Lhe lnLlmaLe knowledge of our laws cusLoms and usages LhaL our own
people have So lL ls llkewlse known LhaL cerLaln classes of allens are of dlfferenL
psychology from our fellow counLrymen lurLhermore lL ls naLural and reasonable
Lo suppose LhaL Lhe forelgn born whose alleglance ls flrsL Lo Lhelr own counLry and
whose ldeals of governmenLal envlronmenL and conLrol have been engendered and
formed under enLlrely dlfferenL reglmes and pollLlcal sysLems have noL Lhe same
lnsplraLlon for Lhe publlc weal nor are Lhey as well dlsposed Loward Lhe unlLed
SLaLes as Lhose who by clLlzenshlp are a parL of Lhe governmenL lLself lurLher
enlargemenL ls unnecessary l have sald enough so LhaL obvlously lL cannoL be
afflrmed wlLh absoluLe confldence LhaL Lhe LeglslaLure was wlLhouL plauslble reason
for maklng Lhe classlflcaLlon and Lherefore approprlaLe dlscrlmlnaLlons agalnsL
allens as lL relaLes Lo Lhe sub[ecL of leglslaLlon
vll 1be uoe ltocess of low llmltotloo
a keosoooblllty tbe test of tbe llmltotloo Jetetmlootloo by leqlslotote Jeclslve
We now come Lo due process as a llmlLaLlon on Lhe exerclse of Lhe pollce power lL
has been sLaLed by Lhe hlghesL auLhorlLy ln Lhe unlLed SLaLes LhaL
And Lhe guaranLy of due process as has ofLen been held demands only LhaL
Lhe law shall noL be unreasonable arblLrary or caprlclous and LhaL Lhe means
selecLed shall have a real and subsLanLlal relaLlon Lo Lhe sub[ecL soughL Lo be
aLLalned
x x x x x x x x x
So far as Lhe requlremenL of due process ls concerned and ln Lhe absence of oLher
consLlLuLlonal resLrlcLlon a sLaLe ls free Lo adopL whaLever economlc pollcy may
reasonably be deemed Lo promoLe publlc welfare and Lo enforce LhaL pollcy by
leglslaLlon adapLed Lo lLs purpose 1he courLs are wlLhouL auLhorlLy elLher Lo
declare such pollcy or when lL ls declared by Lhe leglslaLure Lo overrlde lL lf Lhe
laws passed are seen Lo have a reasonable relaLlon Lo a proper leglslaLlve purpose
198

and are nelLher arblLrary nor dlscrlmlnaLory Lhe requlremenLs of due process are
saLlsfled and [udlclal deLermlnaLlon Lo LhaL effecL renders a courL fooctos offlclo
(nebbla vs new ?ork 78 L ed 940 930 937)
AnoLher auLhorlLy sLaLes Lhe prlnclple Lhus
1oo much slgnlflcance cannoL be glven Lo Lhe word reasonable ln conslderlng
Lhe scope of Lhe pollce power ln a consLlLuLlonal sense for Lhe LesL used Lo
deLermlne Lhe consLlLuLlonallLy of Lhe means employed by Lhe leglslaLure ls Lo
lnqulre wheLher Lhe resLrlcLlon lL lmposes on rlghLs secured Lo lndlvlduals by Lhe 8lll
of 8lghLs are unreasonable and noL wheLher lL lmposes any resLrlcLlons on such
rlghLs
x x x x x x x x x
A sLaLuLe Lo be wlLhln Lhls power musL also be reasonable ln lLs operaLlon upon
Lhe persons whom lL affecLs musL noL be for Lhe annoyance of a parLlcular class
and musL noL be unduly oppresslve (11 Am !ur Sec 302 11) 10741073)
ln Lhe case of lowtoo vs 5teele 38 L ed 383 388 lL was also held
1o [usLlfy Lhe sLaLe ln Lhus lnLerposlng lLs auLhorlLy ln behalf of Lhe publlc lL
musL appear flrsL LhaL Lhe lnLeresLs of Lhe publlc generally as dlsLlngulshed from
Lhose of a parLlcular class requlre such lnLerference and second LhaL Lhe means
are reasonably necessary for Lhe accompllshmenL of Lhe purpose and noL unduly
oppresslve upon lndlvlduals
ltoto uoJettokloq co vs 5tote 8ootJ of mbolmloq 104 AL8 389 393 flxes Lhls
LesL of consLlLuLlonallLy
ln deLermlnlng wheLher a glven acL of Lhe LeglslaLure passed ln Lhe exerclse of Lhe
pollce power Lo regulaLe Lhe operaLlon of a buslness ls or ls noL consLlLuLlonal one
of Lhe flrsL quesLlons Lo be consldered by Lhe courL ls wheLher Lhe power as
exerclsed has a sufflclenL foundaLlon ln reason ln connecLlon wlLh Lhe maLLer
lnvolved or ls an arblLrary oppresslve and caprlclous use of LhaL power wlLhouL
subsLanLlal relaLlon Lo Lhe healLh safeLy morals comforL and general welfare of
Lhe publlc
b letltlooets otqomeot cooslJeteJ
eLlLloners maln argumenL ls LhaL reLall ls a common ordlnary occupaLlon one of
Lhose prlvlleges long ago recognlzed as essenLlal Lo Lhe orderly pursuanL of
happlness by free men LhaL lL ls a galnful and honesL occupaLlon and Lherefore
beyond Lhe power of Lhe leglslaLure Lo prohlblL and penallzed 1hls argumenLs
overlooks facL and reallLy and resLs on an lncorrecL assumpLlon and premlse le
LhaL ln Lhls counLry where Lhe occupaLlon ls engaged ln by peLlLloner lL has been so
engaged by hlm by Lhe allen ln an honesL credlLable and unlmpeachable manner
wlLhouL harm or ln[ury Lo Lhe clLlzens and wlLhouL ulLlmaLe danger Lo Lhelr
economlc peace LranqulllLy and welfare 8uL Lhe LeglslaLure has found as we have
also found and lndlcaLed LhaL Lhe prlvllege has been so grossly abused by Lhe allen
Lhru Lhe llleglLlmaLe use of pernlclous deslgns and pracLlces LhaL he now en[oys a
monopollsLlc conLrol of Lhe occupaLlon and LhreaLens a deadly sLranglehold on Lhe
naLlons economy endangerlng Lhe naLlonal securlLy ln Llmes of crlsls and
emergency
1he real quesLlon aL lssue Lherefore ls noL LhaL posed by peLlLloner whlch
overlooks and lgnores Lhe facLs and clrcumsLances buL Lhls ls Lhe excluslon ln Lhe
fuLure of allens from Lhe reLall Lrade unreasonable ArblLrary caprlclous Laklng lnLo
accounL Lhe llleglLlmaLe and pernlclous form and manner ln whlch Lhe allens have
hereLofore engaged Lhereln? As Lhus correcLly sLaLed Lhe answer ls clear 1he law ln
quesLlon ls deemed absoluLely necessary Lo brlng abouL Lhe deslred leglslaLlve
ob[ecLlve le Lo free naLlonal economy from allen conLrol and domlnance lL ls noL
necessarlly unreasonable because lL affecLs prlvaLe rlghLs and prlvlleges (11 Am !ur
pp 10801081) 1he LesL of reasonableness of a law ls Lhe approprlaLeness or
adequacy under all clrcumsLances of Lhe means adopLed Lo carry ouL lLs purpose
lnLo effecL (lJ) !udged by Lhls LesL dlspuLed leglslaLlon whlch ls noL merely
reasonable buL acLually necessary musL be consldered noL Lo have lnfrlnged Lhe
consLlLuLlonal llmlLaLlon of reasonableness
1he necesslLy of Lhe law ln quesLlon ls explalned ln Lhe explanaLory noLe LhaL
accompanled Lhe blll whlch laLer was enacLed lnLo law
1hls blll proposes Lo regulaLe Lhe reLall buslness lLs purpose ls Lo prevenL persons
who are noL clLlzens of Lhe hlllpplnes from havlng a sLrangle hold upon our
economlc llfe lf Lhe persons who conLrol Lhls vlLal arLery of our economlc llfe are
Lhe ones who owe no alleglance Lo Lhls 8epubllc who have no profound devoLlon
Lo our free lnsLlLuLlons and who have no permanenL sLake ln our peoples welfare
we are noL really Lhe masLers of our desLlny All aspecLs of our llfe even our
naLlonal securlLy wlll be aL Lhe mercy of oLher people
ln seeklng Lo accompllsh Lhe foregolng purpose we do noL propose Lo deprlve
persons who are noL clLlzens of Lhe hlllpplnes of Lhelr means of llvellhood Whlle
Lhls blll seeks Lo Lake away from Lhe hands of persons who are noL clLlzens of Lhe
hlllpplnes a power LhaL can be wlelded Lo paralyze all aspecLs of our naLlonal llfe
and endanger our naLlonal securlLy lL respecLs exlsLlng rlghLs
1he approval of Lhls blll ls necessary for our naLlonal survlval
lf pollLlcal lndependence ls a leglLlmaLe asplraLlon of a people Lhen economlc
lndependence ls none Lhe less leglLlmaLe lreedom and llberLy are noL real and
poslLlve lf Lhe people are sub[ecL Lo Lhe economlc conLrol and domlnaLlon of oLhers
especlally lf noL of Lhelr own race or counLry 1he removal and eradlcaLlon of Lhe
shackles of forelgn economlc conLrol and domlnaLlon ls one of Lhe noblesL moLlves
LhaL a naLlonal leglslaLure may pursue lL ls lmposslble Lo concelve LhaL leglslaLlon
LhaL seeks Lo brlng lL abouL can lnfrlnge Lhe consLlLuLlonal llmlLaLlon of due process
1he aLLalnmenL of a leglLlmaLe asplraLlon of a people can never be beyond Lhe
llmlLs of leglslaLlve auLhorlLy
c low exptessly belJ by coostltotloool cooveotloo to be wltblo tbe spbete of
leqlslotlve octloo
199

1he framers of Lhe ConsLlLuLlon could noL have lnLended Lo lmpose Lhe
consLlLuLlonal resLrlcLlons of due process on Lhe aLLalnmenL of such a noble moLlve
as freedom from economlc conLrol and domlnaLlon Lhru Lhe exerclse of Lhe pollce
power 1he faLhers of Lhe ConsLlLuLlon musL have glven Lo Lhe leglslaLure full
auLhorlLy and power Lo enacL leglslaLlon LhaL would promoLe Lhe supreme
happlness of Lhe people Lhelr freedom and llberLy Cn Lhe preclse lssue now before
us Lhey expressly made Lhelr volce clear Lhey adopLed a resoluLlon expresslng Lhelr
bellef LhaL Lhe leglslaLlon ln quesLlon ls wlLhln Lhe scope of Lhe leglslaLlve power
1hus Lhey declared Lhe Lhelr 8esoluLlon
1haL lL ls Lhe sense of Lhe ConvenLlon LhaL Lhe publlc lnLeresL requlres Lhe
naLlonallzaLlon of reLall Lrade buL lL absLaln from approvlng Lhe amendmenL
lnLroduced by Lhe uelegaLe for Manlla Mr AraneLa and oLhers on Lhls maLLer
because lL ls convlnced LhaL Lhe naLlonal Assembly ls auLhorlzed Lo promulgaLe a
law whlch llmlLs Lo llllplno and Amerlcan clLlzens Lhe prlvllege Lo engage ln Lhe
reLall Lrade (11 Aruego 1he lramlng of Lhe hlllpplne ConsLlLuLlon quoLed on
pages 66 and 67 of Lhe Memorandum for Lhe eLlLloner)
lL would do well Lo refer Lo Lhe naLlonallsLlc Lendency manlfesLed ln varlous
provlslons of Lhe ConsLlLuLlon 1hus ln Lhe preamble a prlnclple ob[ecLlve ls Lhe
conservaLlon of Lhe paLrlmony of Lhe naLlon and as corollary Lhe provlslon llmlLlng
Lo clLlzens of Lhe hlllpplnes Lhe explolLaLlon developmenL and uLlllzaLlon of lLs
naLural resources And ln SecLlon 8 of ArLlcle xlv lL ls provlded LhaL no franchlse
cerLlflcaLe or any oLher form of auLhorlzaLlon for Lhe operaLlon of Lhe publlc uLlllLy
shall be granLed excepL Lo clLlzens of Lhe hlllpplnes 1he naLlonallzaLlon of Lhe
reLall Lrade ls only a conLlnuance of Lhe naLlonallsLlc proLecLlve pollcy lald down as a
prlmary ob[ecLlve of Lhe ConsLlLuLlon Can lL be sald LhaL a law lmbued wlLh Lhe
same purpose and splrlL underlylng many of Lhe provlslons of Lhe ConsLlLuLlon ls
unreasonable lnvalld and unconsLlLuLlonal?
1he serlousness of Lhe LeglslaLures concern for Lhe pllghL of Lhe naLlonals as
manlfesLed ln Lhe approval of Lhe radlcal measures ls Lherefore fully [usLlfled lL
would have been recreanL Lo lLs duLles Lowards Lhe counLry and lLs people would lL
vlew Lhe sorry pllghL of Lhe naLlonals wlLh Lhe complacency and refuse or neglecL Lo
adopL a remedy commensuraLe wlLh Lhe demands of publlc lnLeresL and naLlonal
survlval As Lhe reposlLory of Lhe soverelgn power of leglslaLlon Lhe LeglslaLure was
ln duLy bound Lo face Lhe problem and meeL Lhrough adequaLe measures Lhe
danger and LhreaL LhaL allen domlnaLlon of reLall Lrade poses Lo naLlonal economy
d ltovlsloos of low oot ooteosoooble
A cursory sLudy of Lhe provlslons of Lhe law lmmedlaLely reveals how LoleranL how
reasonable Lhe LeglslaLure has been 1he law ls made prospecLlve and recognlzes
Lhe rlghL and prlvllege of Lhose already engaged ln Lhe occupaLlon Lo conLlnue
Lhereln durlng Lhe resL of Lhelr llves and slmllar recognlLlon of Lhe rlghL Lo conLlnue
ls accorded assoclaLlons of allens 1he rlghL or prlvllege ls denled Lo Lhose only upon
convlcLlon of cerLaln offenses ln Lhe dellberaLlons of Lhe CourL on Lhls case
aLLenLlon was called Lo Lhe facL LhaL Lhe prlvllege should noL have been denled Lo
chlldren and helrs of allens now engaged ln Lhe reLall Lrade Such provlslon would
defeaL Lhe law lLself lLs alms and purposes 8eslde Lhe exerclse of leglslaLlve
dlscreLlon ls noL sub[ecL Lo [udlclal revlew lL ls well seLLled LhaL Lhe CourL wlll noL
lnqulre lnLo Lhe moLlves of Lhe LeglslaLure nor pass upon general maLLers of
leglslaLlve [udgmenL 1he LeglslaLure ls prlmarlly Lhe [udge of Lhe necesslLy of an
enacLmenL or of any of lLs provlslons and every presumpLlon ls ln favor of lLs
valldlLy and Lhough Lhe CourL may hold vlews lnconslsLenL wlLh Lhe wlsdom of Lhe
law lL may noL annul Lhe leglslaLlon lf noL palpably ln excess of Lhe leglslaLlve
power lurLhermore Lhe LesL of Lhe valldlLy of a law aLLacked as a vlolaLlon of due
process ls noL lLs reasonableness buL lLs unreasonableness and we flnd Lhe
provlslons are noL unreasonable 1hese prlnclples also answer varlous oLher
argumenLs ralsed agalnsL Lhe law some of whlch are LhaL Lhe law does noL
promoLe general welfare LhaL Lhousands of allens would be Lhrown ouL of
employmenL LhaL prlces wlll lncrease because of Lhe ellmlnaLlon of compeLlLlon
LhaL Lhere ls no need for Lhe leglslaLlon LhaL adequaLe replacemenL ls
problemaLlcal LhaL Lhere may be general breakdown LhaL Lhere would be
repercusslons from forelgners eLc Many of Lhese argumenLs are dlrecLed agalnsL
Lhe supposed wlsdom of Lhe law whlch lles solely wlLhln Lhe leglslaLlve prerogaLlve
Lhey do noL lmporL lnvalldlLy
vlll AlleqeJ Jefect lo tbe tltle of tbe low
A subordlnaLe ground or reason for Lhe alleged lnvalldlLy of Lhe law ls Lhe clalm LhaL
Lhe LlLle Lhereof ls mlsleadlng or decepLlve as lL conceals Lhe real purpose of Lhe blll
whlch ls Lo naLlonallze Lhe reLall buslness and prohlblL allens from engaglng Lhereln
1he consLlLuLlonal provlslon whlch ls clalmed Lo be vlolaLed ln SecLlon 21 (1) of
ArLlcle vl whlch reads
no blll whlch may be enacLed ln Lhe law shall embrace more Lhan one sub[ecL whlch
shall be expressed ln Lhe LlLle of Lhe blll
WhaL Lhe above provlslon prohlblLs ls dupllclLy LhaL ls lf lLs LlLle compleLely falls Lo
appralse Lhe leglslaLors or Lhe publlc of Lhe naLure scope and consequences of Lhe
law or lLs operaLlon (l SuLherland SLaLuLory ConsLrucLlon Sec 1707 p 297) A
cursory conslderaLlon of Lhe LlLle and Lhe provlslons of Lhe blll falls Lo show Lhe
presence of dupllclLy lL ls Lrue LhaL Lhe Lerm regulaLe does noL and may noL
readlly and aL flrsL glance convey Lhe ldea of naLlonallzaLlon and prohlblLlon
whlch Lerms express Lhe Lwo maln purposes and ob[ecLlves of Lhe law 8uL
regulaLe ls a broader Lerm Lhan elLher prohlblLlon or naLlonallzaLlon 8oLh of
Lhese have always been lncluded wlLhln Lhe Lerm regulaLlon
under Lhe LlLle of an acL Lo regulaLe Lhe sale of lnLoxlcaLlng llquors Lhe
LeglslaLure may prohlblL Lhe sale of lnLoxlcaLlng llquors (SweeL vs ClLy of Wabash
41 lnd 7 quoLed ln page 41 of Answer)
WlLhln Lhe meanlng of Lhe ConsLlLuLlon requlrlng LhaL Lhe sub[ecL of every acL of Lhe
LeglslaLure shall be sLaLed ln Lhe Lale Lhe LlLle Lo regulaLe Lhe sale of lnLoxlcaLlng
200

llquors eLc sufflclenLly expresses Lhe sub[ecL of an acL ptoblbltloq Lhe sale of such
llquors Lo mlnors and Lo persons ln Lhe hablL of geLLlng lnLoxlcaLed such maLLers
belng properly lncluded wlLhln Lhe sub[ecL of regulaLlng Lhe sale (Wllllams vs SLaLe
48 lnd 306 308 quoLed ln p 42 of Answer)
1he word regulaLe ls of broad lmporL and necessarlly lmplles some Jeqtee of
testtolot and prohlblLlon of acLs usually done ln connecLlon wlLh Lhe Lhlng Lo be
regulaLed Whlle word regulaLe does noL ordlnarlly convey meanlng of prohlblL
Lhere ls no absoluLe reason why lL should noL have such meanlng when used ln
delegaLlng pollce power ln connecLlon wlLh a Lhlng Lhe besL or only efflcaclous
regulaLlon of whlch lnvolves suppresslon (SLaLe vs MorLon 162 So 718 182 La
887 quoLed ln p 42 of Answer)
1he general rule ls for Lhe use of general Lerms ln Lhe LlLle of a blll lL has also been
sald LhaL Lhe LlLle need noL be an lndex Lo Lhe enLlre conLenLs of Lhe law (l
SuLherland SLaLuLory ConsLrucLlon See 4803 p 343) 1he above rule was followed
Lhe LlLle of Lhe AcL ln quesLlon adopLed Lhe more general Lerm regulaLe lnsLead of
naLlonallze or prohlblL lurLhermore Lhe law also conLalns oLher rules for Lhe
regulaLlon of Lhe reLall Lrade whlch may noL be lncluded ln Lhe Lerms
naLlonallzaLlon or prohlblLlon so were Lhe LlLle changed from regulaLe Lo
naLlonallze or prohlblL Lhere would have been many provlslons noL falllng
wlLhln Lhe scope of Lhe LlLle whlch would have made Lhe AcL lnvalld 1he use of Lhe
Lerm regulaLe Lherefore ls ln accord wlLh Lhe prlnclple governlng Lhe drafLlng of
sLaLuLes under whlch a slmple or general Lerm should be adopLed ln Lhe LlLle whlch
would lnclude all oLher provlslons found ln Lhe body of Lhe AcL
Cne purpose of Lhe consLlLuLlonal dlrecLlve LhaL Lhe sub[ecL of a blll should be
embraced ln lLs LlLle ls Lo apprlse Lhe leglslaLors of Lhe purposes Lhe naLure and
scope of lLs provlslons and prevenL Lhe enacLmenL lnLo law of maLLers whlch have
recelved Lhe noLlce acLlon and sLudy of Lhe leglslaLors or of Lhe publlc ln Lhe case
aL bar lL cannoL be clalmed LhaL Lhe leglslaLors have been appralsed of Lhe naLure of
Lhe law especlally Lhe naLlonallzaLlon and Lhe prohlblLlon provlslons 1he leglslaLors
Look acLlve lnLeresL ln Lhe dlscusslon of Lhe law and a greaL many of Lhe persons
affecLed by Lhe prohlblLlons ln Lhe law conducLed a campalgn agalnsL lLs approval lL
cannoL be clalmed Lherefore LhaL Lhe reasons for declarlng Lhe law lnvalld ever
exlsLed 1he ob[ecLlon musL Lherefore be overruled
lx AlleqeJ vlolotloo of lotetootloool tteotles ooJ obllqotloos
AnoLher subordlnaLe argumenL agalnsL Lhe valldlLy of Lhe law ls Lhe supposed
vlolaLlon Lhereby of Lhe CharLer of Lhe unlLed naLlons and of Lhe ueclaraLlon of Lhe
Puman 8lghLs adopLed by Lhe unlLed naLlons Ceneral Assembly We flnd no merlL
ln Lhe naLlons CharLer lmposes no sLrlcL or legal obllgaLlons regardlng Lhe rlghLs and
freedom of Lhelr sub[ecLs (Pans kelsen 1he Law of Lhe unlLed naLlons 1931 ed pp
2932) and Lhe ueclaraLlon of Puman 8lghLs conLalns noLhlng more Lhan a mere
recommendaLlon or a common sLandard of achlevemenL for all peoples and all
naLlons (lJ p 39) 1haL such ls Lhe lmporL of Lhe unlLed naLlons CharLer ald of Lhe
ueclaraLlon of Puman 8lghLs can be lnferred Lhe facL LhaL members of Lhe unlLed
naLlons CrganlzaLlons such as norway and uenmark prohlblL forelgners from
engaglng ln reLall Lrade and ln mosL naLlons of Lhe world laws agalnsL forelgners
engaged ln domesLlc Lrade are adopLed
1he 1reaLy of AmlLy beLween Lhe 8epubllc of Lhe hlllpplnes and Lhe 8epubllc of
Chlna of Aprll 18 1947 ls also clalmed Lo be vlolaLed by Lhe law ln quesLlon All LhaL
Lhe LreaLy guaranLees ls equallLy of LreaLmenL Lo Lhe Chlnese naLlonals upon Lhe
same Lerms as Lhe naLlonals of any oLher counLry 8uL Lhe naLlonals of Chlna are
noL dlscrlmlnaLlng agalnsL because naLlonals of all oLher counLrles excepL Lhose of
Lhe unlLed SLaLes who are granLed speclal rlghLs by Lhe ConsLlLuLlon are all
prohlblLed from engaglng ln Lhe reLall Lrade 8uL even supposlng LhaL Lhe law
lnfrlnges upon Lhe sald LreaLy Lhe LreaLy ls always sub[ecL Lo quallflcaLlon or
amendmenL by a subsequenL law (u S vs 1hompson 238 led 237 260) and Lhe
same may never curLall or resLrlcL Lhe scope of Lhe pollce power of Lhe SLaLe
(plasLon vs ennsylvanla 38 L ed 339)
x cooclosloo
8esumlng whaL we have seL forLh above we hold LhaL Lhe dlspuLed law was enacLed
Lo remedy a real acLual LhreaL and danger Lo naLlonal economy posed by allen
domlnance and conLrol of Lhe reLall buslness and free clLlzens and counLry from
domlnance and conLrol LhaL Lhe enacLmenL clearly falls wlLhln Lhe scope of Lhe
pollce power of Lhe SLaLe Lhru whlch and by whlch lL proLecLs lLs own personallLy
and lnsures lLs securlLy and fuLure LhaL Lhe law does noL vlolaLe Lhe equal
proLecLlon clause of Lhe ConsLlLuLlon because sufflclenL grounds exlsL for Lhe
dlsLlncLlon beLween allen and clLlzen ln Lhe exerclse of Lhe occupaLlon regulaLed
nor Lhe due process of law clause because Lhe law ls prospecLlve ln operaLlon and
recognlzes Lhe prlvllege of allens already engaged ln Lhe occupaLlon and reasonably
proLecLs Lhelr prlvllege LhaL Lhe wlsdom and efflcacy of Lhe law Lo carry ouL lLs
ob[ecLlves appear Lo us Lo be plalnly evldenL as a maLLer of facL lL seems noL only
approprlaLe buL acLually necessary and LhaL ln any case such maLLer falls wlLhln
Lhe prerogaLlve of Lhe LeglslaLure wlLh whose power and dlscreLlon Lhe !udlclal
deparLmenL of Lhe CovernmenL may noL lnLerfere LhaL Lhe provlslons of Lhe law
are clearly embraced ln Lhe LlLle and Lhls suffers from no dupllclLy and has noL
mlsled Lhe leglslaLors or Lhe segmenL of Lhe populaLlon affecLed and LhaL lL cannoL
be sald Lo be vold for supposed confllcL wlLh LreaLy obllgaLlons because no LreaLy
has acLually been enLered lnLo on Lhe sub[ecL and Lhe pollce power may noL be
curLalled or surrendered by any LreaLy or any oLher convenLlonal agreemenL
Some members of Lhe CourL are of Lhe oplnlon LhaL Lhe radlcal effecLs of Lhe law
could have been made less harsh ln lLs lmpacL on Lhe allens 1hus lL ls sLaLed LhaL
Lhe more Llme should have been glven ln Lhe law for Lhe llquldaLlon of exlsLlng
buslnesses when Lhe Llme comes for Lhem Lo close Cur legal duLy however ls
merely Lo deLermlne lf Lhe law falls wlLhln Lhe scope of leglslaLlve auLhorlLy and
does noL Lranscend Lhe llmlLaLlons of due process and equal proLecLlon guaranLeed
201

ln Lhe ConsLlLuLlon 8emedles agalnsL Lhe harshness of Lhe law should be addressed
Lo Lhe LeglslaLure Lhey are beyond our power and [urlsdlcLlon
1he peLlLlon ls hereby denled wlLh cosLs agalnsL peLlLloner

Gk No 78742 Iu|y 14 1989
ASSCCIA1ICN CI SMALL LANDCJNLkS IN 1L 9ILI99INLS INC VS SLC CI DAk
C8uZ I
ln anclenL myLhology AnLaeus was a Lerrlble glanL who blocked and challenged
Percules for hls llfe on hls way Lo Mycenae afLer performlng hls elevenLh labor 1he
Lwo wresLled mlghLlly and Percules flung hls adversary Lo Lhe ground Lhlnklng hlm
dead buL AnLaeus rose even sLronger Lo resume Lhelr sLruggle 1hls happened
several Llmes Lo Percules lncreaslng amazemenL llnally as Lhey conLlnued
grappllng lL dawned on Percules LhaL AnLaeus was Lhe son of Caea and could never
dle as long as any parL of hls body was Louchlng hls MoLher LarLh 1hus forewarned
Percules Lhen held AnLaeus up ln Lhe alr beyond Lhe reach of Lhe susLalnlng soll
and crushed hlm Lo deaLh
MoLher LarLh 1he susLalnlng soll 1he glver of llfe wlLhouL whose lnvlgoraLlng
Louch even Lhe powerful AnLaeus weakened and dled
1he cases before us are noL as fanclful as Lhe foregolng Lale 8uL Lhey also Lell of Lhe
elemenLal forces of llfe and deaLh of men and women who llke AnLaeus need Lhe
susLalnlng sLrengLh of Lhe preclous earLh Lo sLay allve
Land for Lhe Landless ls a slogan LhaL underscores Lhe acuLe lmbalance ln Lhe
dlsLrlbuLlon of Lhls preclous resource among our people 8uL lL ls more Lhan a
slogan 1hrough Lhe broodlng cenLurles lL has become a baLLlecry dramaLlzlng Lhe
lncreaslngly urgenL demand of Lhe dlspossessed among us for a ploL of earLh as
Lhelr place ln Lhe sun
8ecognlzlng Lhls need Lhe ConsLlLuLlon ln 1933 mandaLed Lhe pollcy of soclal [usLlce
Lo lnsure Lhe wellbelng and economlc securlLy of all Lhe people
1
especlally Lhe
less prlvlleged ln 1973 Lhe new ConsLlLuLlon afflrmed Lhls goal addlng speclflcally
LhaL Lhe SLaLe shall regulaLe Lhe acqulslLlon ownershlp use en[oymenL and
dlsposlLlon of prlvaLe properLy and equlLably dlffuse properLy ownershlp and
proflLs
2
SlgnlflcanLly Lhere was also Lhe speclflc ln[uncLlon Lo formulaLe and
lmplemenL an agrarlan reform program almed aL emanclpaLlng Lhe LenanL from Lhe
bondage of Lhe soll
3

1he ConsLlLuLlon of 1987 was noL Lo be ouLdone 8esldes echolng Lhese senLlmenLs
lL also adopLed one whole and separaLe ArLlcle xlll on Soclal !usLlce and Puman
8lghLs conLalnlng grandlose buL undoubLedly slncere provlslons for Lhe upllfL of Lhe
common people 1hese lnclude a call ln Lhe followlng words for Lhe adopLlon by Lhe
SLaLe of an agrarlan reform program
SLC 4 1he SLaLe shall by law underLake an agrarlan reform program founded on
Lhe rlghL of farmers and regular farmworkers who are landless Lo own dlrecLly or
collecLlvely Lhe lands Lhey Llll or ln Lhe case of oLher farmworkers Lo recelve a [usL
share of Lhe frulLs Lhereof 1o Lhls end Lhe SLaLe shall encourage and underLake Lhe
[usL dlsLrlbuLlon of all agrlculLural lands sub[ecL Lo such prlorlLles and reasonable
reLenLlon llmlLs as Lhe Congress may prescrlbe Laklng lnLo accounL ecologlcal
developmenLal or equlLy conslderaLlons and sub[ecL Lo Lhe paymenL of [usL
compensaLlon ln deLermlnlng reLenLlon llmlLs Lhe SLaLe shall respecL Lhe rlghL of
small landowners 1he SLaLe shall furLher provlde lncenLlves for volunLary land
sharlng
Larller ln facL 8A no 3844 oLherwlse known as Lhe AgrlculLural Land 8eform
Code had already been enacLed by Lhe Congress of Lhe hlllpplnes on AugusL 8
1963 ln llne wlLh Lhe abovesLaLed prlnclples 1hls was subsLanLlally superseded
almosL a decade laLer by u no 27 whlch was promulgaLed on CcLober 21 1972
along wlLh marLlal law Lo provlde for Lhe compulsory acqulslLlon of prlvaLe lands
for dlsLrlbuLlon among LenanLfarmers and Lo speclfy maxlmum reLenLlon llmlLs for
landowners
1he people power revoluLlon of 1986 dld noL change and lndeed even energlzed Lhe
LhrusL for agrarlan reform 1hus on !uly 17 1987 resldenL Corazon C Aqulno
lssued LC no 228 declarlng full land ownershlp ln favor of Lhe beneflclarles of
u no 27 and provldlng for Lhe valuaLlon of sLlll unvalued lands covered by Lhe
decree as well as Lhe manner of Lhelr paymenL 1hls was followed on !uly 22 1987
by resldenLlal roclamaLlon no 131 lnsLlLuLlng a comprehenslve agrarlan reform
program (CA8) and LC no 229 provldlng Lhe mechanlcs for lLs lmplemenLaLlon
SubsequenLly wlLh lLs formal organlzaLlon Lhe revlved Congress of Lhe hlllpplnes
Look over leglslaLlve power from Lhe resldenL and sLarLed lLs own dellberaLlons
lncludlng exLenslve publlc hearlngs on Lhe lmprovemenL of Lhe lnLeresLs of farmers
1he resulL afLer almosL a year of splrlLed debaLe was Lhe enacLmenL of 8A no
6637 oLherwlse known as Lhe Comprehenslve Agrarlan 8eform Law of 1988 whlch
resldenL Aqulno slgned on !une 10 1988 1hls law whlle conslderably changlng
Lhe earller menLloned enacLmenLs neverLheless glves Lhem suppleLory effecL
lnsofar as Lhey are noL lnconslsLenL wlLh lLs provlslons
4

1he abovecapLloned cases have been consolldaLed because Lhey lnvolve common
legal quesLlons lncludlng serlous challenges Lo Lhe consLlLuLlonallLy of Lhe several
measures menLloned above 1hey wlll be Lhe sub[ecL of one common dlscusslon and
resoluLlon 1he dlfferenL anLecedenLs of each case wlll requlre separaLe LreaLmenL
however and wlll flrsL be explalned hereunder
C8 no 79777
Squarely ralsed ln Lhls peLlLlon ls Lhe consLlLuLlonallLy of u no 27 LC nos 228
and 229 and 8A no 6637
1he sub[ecLs of Lhls peLlLlon are a 9hecLare rlceland worked by four LenanLs and
owned by peLlLloner nlcolas Manaay and hls wlfe and a 3hecLare rlceland worked
by four LenanLs and owned by peLlLloner AugusLln Permano !r 1he LenanLs were
declared full owners of Lhese lands by LC no 228 as quallfled farmers under u
no 27
202

1he peLlLloners are quesLlonlng u no 27 and LC nos 228 and 229 on grounds
lnLer alla of separaLlon of powers due process equal proLecLlon and Lhe
consLlLuLlonal llmlLaLlon LhaL no prlvaLe properLy shall be Laken for publlc use
wlLhouL [usL compensaLlon
1hey conLend LhaL resldenL Aqulno usurped leglslaLlve power when she
promulgaLed LC no 228 1he sald measure ls lnvalld also for vlolaLlon of ArLlcle
xlll SecLlon 4 of Lhe ConsLlLuLlon for fallure Lo provlde for reLenLlon llmlLs for small
landowners Moreover lL does noL conform Lo ArLlcle vl SecLlon 23(4) and Lhe
oLher requlslLes of a valld approprlaLlon
ln connecLlon wlLh Lhe deLermlnaLlon of [usL compensaLlon Lhe peLlLloners argue
LhaL Lhe same may be made only by a courL of [usLlce and noL by Lhe resldenL of
Lhe hlllpplnes 1hey lnvoke Lhe recenL cases of l2A v uoloy
5
and Moootok v
Notloool looJ Aotbotlty
6
Moreover Lhe [usL compensaLlon conLemplaLed by Lhe
8lll of 8lghLs ls payable ln money or ln cash and noL ln Lhe form of bonds or oLher
Lhlngs of value
ln conslderlng Lhe renLals as advance paymenL on Lhe land Lhe execuLlve order also
deprlves Lhe peLlLloners of Lhelr properLy rlghLs as proLecLed by due process 1he
equal proLecLlon clause ls also vlolaLed because Lhe order places Lhe burden of
solvlng Lhe agrarlan problems on Lhe owners only of agrlculLural lands no slmllar
obllgaLlon ls lmposed on Lhe owners of oLher properLles
1he peLlLloners also malnLaln LhaL ln declarlng Lhe beneflclarles under u no 27 Lo
be Lhe owners of Lhe lands occupled by Lhem LC no 228 lgnored [udlclal
prerogaLlves and so vlolaLed due process Worse Lhe measure would noL solve Lhe
agrarlan problem because even Lhe small farmers are deprlved of Lhelr lands and
Lhe reLenLlon rlghLs guaranLeed by Lhe ConsLlLuLlon
ln hls CommenL Lhe SollclLor Ceneral sLresses LhaL u no 27 has already been
upheld ln Lhe earller cases of cbovez v 2obel
7
Coozoles v sttello
8
ooJ
Assoclotloo of klce ooJ coto ltoJocets of tbe lblllpploes loc v 1be Notloool looJ
kefotm cooocll
9
1he deLermlnaLlon of [usL compensaLlon by Lhe execuLlve
auLhorlLles conformably Lo Lhe formula prescrlbed under Lhe quesLloned order ls aL
besL lnlLlal or prellmlnary only lL does noL foreclose [udlclal lnLervenLlon whenever
soughL or warranLed AL any raLe Lhe challenge Lo Lhe order ls premaLure because
no valuaLlon of Lhelr properLy has as yeL been made by Lhe ueparLmenL of Agrarlan
8eform 1he peLlLloners are also noL proper parLles because Lhe lands owned by
Lhem do noL exceed Lhe maxlmum reLenLlon llmlL of 7 hecLares
8eplylng Lhe peLlLloners lnslsL Lhey are proper parLles because u no 27 does noL
provlde for reLenLlon llmlLs on LenanLed lands and LhaL ln any evenL Lhelr peLlLlon ls
a class sulL broughL ln behalf of landowners wlLh landholdlngs below 24 hecLares
1hey malnLaln LhaL Lhe deLermlnaLlon of [usL compensaLlon by Lhe admlnlsLraLlve
auLhorlLles ls a flnal ascerLalnmenL As for Lhe cases lnvoked by Lhe publlc
respondenL Lhe consLlLuLlonallLy of u no 27 was merely assumed ln cbovez
whlle whaL was declded ln Coozoles was Lhe valldlLy of Lhe lmposlLlon of marLlal
law
ln Lhe amended peLlLlon daLed november 22 1388 lL ls conLended LhaL u no 27
LC nos 228 and 229 (excepL SecLlons 20 and 21) have been lmplledly repealed by
8A no 6637 neverLheless Lhls sLaLuLe should lLself also be declared
unconsLlLuLlonal because lL suffers from subsLanLlally Lhe same lnflrmlLles as Lhe
earller measures
A peLlLlon for lnLervenLlon was flled wlLh leave of courL on !une 1 1988 by vlcenLe
Cruz owner of a 1 83 hecLare land who complalned LhaL Lhe uA8 was lnslsLlng on
Lhe lmplemenLaLlon of u no 27 and LC no 228 desplLe a compromlse
agreemenL he had reached wlLh hls LenanL on Lhe paymenL of renLals ln a
subsequenL moLlon daLed Aprll 10 1989 he adopLed Lhe allegaLlons ln Lhe baslc
amended peLlLlon LhaL Lhe above menLloned enacLmenLs have been lmplledly
repealed by 8A no 6637
C8 no 79310
1he peLlLloners hereln are landowners and sugar planLers ln Lhe vlcLorlas Mlll
ulsLrlcL vlcLorlas negros CccldenLal CopeLlLloner lanLers CommlLLee lnc ls an
organlzaLlon composed of 1400 planLermembers 1hls peLlLlon seeks Lo prohlblL
Lhe lmplemenLaLlon of roc no 131 and LC no 229
1he peLlLloners clalm LhaL Lhe power Lo provlde for a Comprehenslve Agrarlan
8eform rogram as decreed by Lhe ConsLlLuLlon belongs Lo Congress and noL Lhe
resldenL AlLhough Lhey agree LhaL Lhe resldenL could exerclse leglslaLlve power
unLll Lhe Congress was convened she could do so only Lo enacL emergency
measures durlng Lhe LranslLlon perlod AL LhaL even assumlng LhaL Lhe lnLerlm
leglslaLlve power of Lhe resldenL was properly exerclsed roc no 131 and LC
no 229 would sLlll have Lo be annulled for vlolaLlng Lhe consLlLuLlonal provlslons on
[usL compensaLlon due process and equal proLecLlon
1hey also argue LhaL under SecLlon 2 of roc no 131 whlch provldes
Agrarlan 8eform lund1here ls hereby creaLed a speclal fund Lo be known as Lhe
Agrarlan 8eform lund an lnlLlal amounL of lll1? 8lLLlCn LSCS
(3000000000000) Lo cover Lhe esLlmaLed cosL of Lhe Comprehenslve Agrarlan
8eform rogram from 1987 Lo 1992 whlch shall be sourced from Lhe recelpLs of Lhe
sale of Lhe asseLs of Lhe AsseL rlvaLlzaLlon 1rusL and 8ecelpLs of sale of lllgoLLen
wealLh recelved Lhrough Lhe resldenLlal Commlsslon on Cood CovernmenL and
such oLher sources as governmenL may deem approprlaLe 1he amounLs collecLed
and accrulng Lo Lhls speclal fund shall be consldered auLomaLlcally approprlaLed for
Lhe purpose auLhorlzed ln Lhls roclamaLlon Lhe amounL approprlaLed ls ln fuLuro
noL ln esse 1he money needed Lo cover Lhe cosL of Lhe conLemplaLed exproprlaLlon
has yeL Lo be ralsed and cannoL be approprlaLed aL Lhls Llme
lurLhermore Lhey conLend LhaL Laklng musL be slmulLaneous wlLh paymenL of [usL
compensaLlon as lL ls LradlLlonally undersLood le wlLh money and ln full buL no
such paymenL ls conLemplaLed ln SecLlon 3 of Lhe LC no 229 Cn Lhe conLrary
203

SecLlon 6 Lhereof provldes LhaL Lhe Land 8ank of Lhe hlllpplnes shall compensaLe
Lhe landowner ln an amounL Lo be esLabllshed by Lhe governmenL whlch shall be
based on Lhe owners declaraLlon of currenL falr markeL value as provlded ln SecLlon
4 hereof buL sub[ecL Lo cerLaln conLrols Lo be deflned and promulgaLed by Lhe
resldenLlal Agrarlan 8eform Councll 1hls compensaLlon may noL be pald fully ln
money buL ln any of several modes LhaL may conslsL of parL cash and parL bond
wlLh lnLeresL maLurlng perlodlcally or dlrecL paymenL ln cash or bond as may be
muLually agreed upon by Lhe beneflclary and Lhe landowner or as may be
prescrlbed or approved by Lhe A8C
1he peLlLloners also argue LhaL ln Lhe lssuance of Lhe Lwo measures no efforL was
made Lo make a careful sLudy of Lhe sugar planLers slLuaLlon 1here ls no Lenancy
problem ln Lhe sugar areas LhaL can [usLlfy Lhe appllcaLlon of Lhe CA8 Lo Lhem 1o
Lhe exLenL LhaL Lhe sugar planLers have been lumped ln Lhe same leglslaLlon wlLh
oLher farmers alLhough Lhey are a separaLe group wlLh problems excluslvely Lhelr
own Lhelr rlghL Lo equal proLecLlon has been vlolaLed
A moLlon for lnLervenLlon was flled on AugusL 271987 by Lhe naLlonal lederaLlon
of Sugarcane lanLers (nAS) whlch clalms a membershlp of aL leasL 20000
lndlvldual sugar planLers all over Lhe counLry Cn SepLember 10 1987 anoLher
moLlon for lnLervenLlon was flled Lhls Llme by Manuel 8arcelona eL al
represenLlng coconuL and rlceland owners 8oLh moLlons were granLed by Lhe
CourL
nAS alleges LhaL resldenL Aqulno had no auLhorlLy Lo fund Lhe Agrarlan 8eform
rogram and LhaL ln any evenL Lhe approprlaLlon ls lnvalld because of uncerLalnLy
ln Lhe amounL approprlaLed SecLlon 2 of roc no 131 and SecLlons 20 and 21 of
LC no 229 provlde for an lnlLlal approprlaLlon of flfLy bllllon pesos and Lhus
speclfles Lhe mlnlmum raLher Lhan Lhe maxlmum auLhorlzed amounL 1hls ls noL
allowed lurLhermore Lhe sLaLed lnlLlal amounL has noL been cerLlfled Lo by Lhe
naLlonal 1reasurer as acLually avallable
1wo addlLlonal argumenLs are made by 8arcelona Lo wlL Lhe fallure Lo esLabllsh by
clear and convlnclng evldence Lhe necesslLy for Lhe exerclse of Lhe powers of
emlnenL domaln and Lhe vlolaLlon of Lhe fundamenLal rlghL Lo own properLy
1he peLlLloners also decry Lhe penalLy for nonreglsLraLlon of Lhe lands whlch ls Lhe
exproprlaLlon of Lhe sald land for an amounL equal Lo Lhe governmenL assessors
valuaLlon of Lhe land for Lax purposes Cn Lhe oLher hand lf Lhe landowner declares
hls own valuaLlon he ls un[usLly requlred Lo lmmedlaLely pay Lhe correspondlng
Laxes on Lhe land ln vlolaLlon of Lhe unlformlLy rule
ln hls consolldaLed CommenL Lhe SollclLor Ceneral flrsL lnvokes Lhe presumpLlon of
consLlLuLlonallLy ln favor of roc no 131 and LC no 229 Pe also [usLlfles Lhe
necesslLy for Lhe exproprlaLlon as explalned ln Lhe whereas clauses of Lhe
roclamaLlon and submlLs LhaL conLrary Lo Lhe peLlLloners conLenLlon a plloL
pro[ecL Lo deLermlne Lhe feaslblllLy of CA8 and a general survey on Lhe peoples
oplnlon Lhereon are noL lndlspensable prerequlslLes Lo lLs promulgaLlon
Cn Lhe alleged vlolaLlon of Lhe equal proLecLlon clause Lhe sugar planLers have
falled Lo show LhaL Lhey belong Lo a dlfferenL class and should be dlfferenLly
LreaLed 1he CommenL also suggesLs Lhe posslblllLy of Congress flrsL dlsLrlbuLlng
publlc agrlculLural lands and schedullng Lhe exproprlaLlon of prlvaLe agrlculLural
lands laLer lrom Lhls vlewpolnL Lhe peLlLlon for prohlblLlon would be premaLure
1he publlc respondenL also polnLs ouL LhaL Lhe consLlLuLlonal prohlblLlon ls agalnsL
Lhe paymenL of publlc money wlLhouL Lhe correspondlng approprlaLlon 1here ls no
rule LhaL only money already ln exlsLence can be Lhe sub[ecL of an approprlaLlon
law llnally Lhe earmarklng of flfLy bllllon pesos as Agrarlan 8eform lund alLhough
denomlnaLed as an lnlLlal amounL ls acLually Lhe maxlmum sum approprlaLed 1he
word lnlLlal slmply means LhaL addlLlonal amounLs may be approprlaLed laLer
when necessary
Cn Aprll 11 1988 rudenclo Serrano a coconuL planLer flled a peLlLlon on hls own
behalf assalllng Lhe consLlLuLlonallLy of LC no 229 ln addlLlon Lo Lhe argumenLs
already ralsed Serrano conLends LhaL Lhe measure ls unconsLlLuLlonal because
(1) Cnly publlc lands should be lncluded ln Lhe CA8
(2) LC no 229 embraces more Lhan one sub[ecL whlch ls noL expressed ln Lhe LlLle
(3) 1he power of Lhe resldenL Lo leglslaLe was LermlnaLed on !uly 2 1987 and
(4) 1he approprlaLlon of a 30 bllllon speclal fund from Lhe naLlonal 1reasury dld
noL orlglnaLe from Lhe Pouse of 8epresenLaLlves
C8 no 79744
1he peLlLloner alleges LhaL Lhe Lhen SecreLary of ueparLmenL of Agrarlan 8eform ln
vlolaLlon of due process and Lhe requlremenL for [usL compensaLlon placed hls
landholdlng under Lhe coverage of CperaLlon Land 1ransfer CerLlflcaLes of Land
1ransfer were subsequenLly lssued Lo Lhe prlvaLe respondenLs who Lhen refused
paymenL of lease renLals Lo hlm
Cn SepLember 3 1986 Lhe peLlLloner proLesLed Lhe erroneous lncluslon of hls small
landholdlng under CperaLlon Land Lransfer and asked for Lhe recall and cancellaLlon
of Lhe CerLlflcaLes of Land 1ransfer ln Lhe name of Lhe prlvaLe respondenLs Pe
clalms LhaL on uecember 24 1986 hls peLlLlon was denled wlLhouL hearlng Cn
lebruary 17 1987 he flled a moLlon for reconslderaLlon whlch had noL been acLed
upon when LC nos 228 and 229 were lssued 1hese orders rendered hls moLlon
mooL and academlc because Lhey dlrecLly effecLed Lhe Lransfer of hls land Lo Lhe
prlvaLe respondenLs
1he peLlLloner now argues LhaL
(1) LC nos 228 and 229 were lnvalldly lssued by Lhe resldenL of Lhe hlllpplnes
(2) 1he sald execuLlve orders are vlolaLlve of Lhe consLlLuLlonal provlslon LhaL no
prlvaLe properLy shall be Laken wlLhouL due process or [usL compensaLlon
(3) 1he peLlLloner ls denled Lhe rlghL of maxlmum reLenLlon provlded for under Lhe
1987 ConsLlLuLlon
1he peLlLloner conLends LhaL Lhe lssuance of L0 nos 228 and 229 shorLly before
Congress convened ls anomalous and arblLrary besldes vlolaLlng Lhe docLrlne of
204

separaLlon of powers 1he leglslaLlve power granLed Lo Lhe resldenL under Lhe
1ranslLory rovlslons refers only Lo emergency measures LhaL may be promulgaLed
ln Lhe proper exerclse of Lhe pollce power
1he peLlLloner also lnvokes hls rlghLs noL Lo be deprlved of hls properLy wlLhouL due
process of law and Lo Lhe reLenLlon of hls small parcels of rlceholdlng as guaranLeed
under ArLlcle xlll SecLlon 4 of Lhe ConsLlLuLlon Pe llkewlse argues LhaL besldes
denylng hlm [usL compensaLlon for hls land Lhe provlslons of LC no 228 declarlng
LhaL
Lease renLals pald Lo Lhe landowner by Lhe farmerbeneflclary afLer CcLober 21
1972 shall be consldered as advance paymenL for Lhe land
ls an unconsLlLuLlonal Laklng of a vesLed properLy rlghL lL ls also hls conLenLlon LhaL
Lhe lncluslon of even small landowners ln Lhe program along wlLh oLher landowners
wlLh lands conslsLlng of seven hecLares or more ls undemocraLlc
ln hls CommenL Lhe SollclLor Ceneral submlLs LhaL Lhe peLlLlon ls premaLure
because Lhe moLlon for reconslderaLlon flled wlLh Lhe MlnlsLer of Agrarlan 8eform
ls sLlll unresolved As for Lhe valldlLy of Lhe lssuance of LC nos 228 and 229 he
argues LhaL Lhey were enacLed pursuanL Lo SecLlon 6 ArLlcle xvlll of Lhe 1ranslLory
rovlslons of Lhe 1987 ConsLlLuLlon whlch reads
1he lncumbenL presldenL shall conLlnue Lo exerclse leglslaLlve powers unLll Lhe flrsL
Congress ls convened
Cn Lhe lssue of [usL compensaLlon hls poslLlon ls LhaL when u no 27 was
promulgaLed on CcLober 21 1972 Lhe LenanLfarmer of agrlculLural land was
deemed Lhe owner of Lhe land he was Lllllng 1he leasehold renLals pald afLer LhaL
daLe should Lherefore be consldered amorLlzaLlon paymenLs
ln hls 8eply Lo Lhe publlc respondenLs Lhe peLlLloner malnLalns LhaL Lhe moLlon he
flled was resolved on uecember 14 1987 An appeal Lo Lhe Cfflce of Lhe resldenL
would be useless wlLh Lhe promulgaLlon of LC nos 228 and 229 whlch ln effecL
sancLloned Lhe valldlLy of Lhe publlc respondenLs acLs
C8 no 78742
1he peLlLloners ln Lhls case lnvoke Lhe rlghL of reLenLlon granLed by u no 27 Lo
owners of rlce and corn lands noL exceedlng seven hecLares as long as Lhey are
culLlvaLlng or lnLend Lo culLlvaLe Lhe same 1helr respecLlve lands do noL exceed Lhe
sLaLuLory llmlL buL are occupled by LenanLs who are acLually culLlvaLlng such lands
Accordlng Lo u no 316 whlch was promulgaLed ln lmplemenLaLlon of u no
27
no LenanLfarmer ln agrlculLural lands prlmarlly devoLed Lo rlce and corn shall be
e[ecLed or removed from hls farmholdlng unLll such Llme as Lhe respecLlve rlghLs of
Lhe LenanL farmers and Lhe landowner shall have been deLermlned ln accordance
wlLh Lhe rules and regulaLlons lmplemenLlng u no 27
1he peLlLloners clalm Lhey cannoL e[ecL Lhelr LenanLs and so are unable Lo en[oy
Lhelr rlghL of reLenLlon because Lhe ueparLmenL of Agrarlan 8eform has so far noL
lssued Lhe lmplemenLlng rules requlred under Lhe abovequoLed decree 1hey
Lherefore ask Lhe CourL for a wrlL of mandamus Lo compel Lhe respondenL Lo lssue
Lhe sald rules
ln hls CommenL Lhe publlc respondenL argues LhaL u no 27 has been amended
by LCl 474 removlng any rlghL of reLenLlon from persons who own oLher
agrlculLural lands of more Lhan 7 hecLares ln aggregaLe area or lands used for
resldenLlal commerclal lndusLrlal or oLher purposes from whlch Lhey derlve
adequaLe lncome for Lhelr famlly And even assumlng LhaL Lhe peLlLloners do noL
fall under lLs Lerms Lhe regulaLlons lmplemenLlng u no 27 have already been
lssued Lo wlL Lhe Memorandum daLed !uly 10 1973 (lnLerlm Culdellnes on
8eLenLlon by Small Landowners wlLh an accompanylng 8eLenLlon Culde 1able)
Memorandum Clrcular no 11 daLed Aprll 21 1978 (lmplemenLaLlon Culdellnes of
LCl no 474) Memorandum Clrcular no 1881 daLed uecember 291981
(ClarlflcaLory Culdellnes on Coverage of u no 27 and 8eLenLlon by Small
Landowners) and uA8 AdmlnlsLraLlve Crder no 1 serles of 1983 (rovldlng for a
CuLoff uaLe for Landowners Lo Apply for 8eLenLlon and/or Lo roLesL Lhe Coverage
of Lhelr Landholdlngs under CperaLlon Land 1ransfer pursuanL Lo u no 27) lor
fallure Lo flle Lhe correspondlng appllcaLlons for reLenLlon under Lhese measures
Lhe peLlLloners are now barred from lnvoklng Lhls rlghL
1he publlc respondenL also sLresses LhaL Lhe peLlLloners have premaLurely lnlLlaLed
Lhls case noLwlLhsLandlng Lhe pendency of Lhelr appeal Lo Lhe resldenL of Lhe
hlllpplnes Moreover Lhe lssuance of Lhe lmplemenLlng rules assumlng Lhls has
noL yeL been done lnvolves Lhe exerclse of dlscreLlon whlch cannoL be conLrolled
Lhrough Lhe wrlL of mooJomos 1hls ls especlally Lrue lf Lhls funcLlon ls enLrusLed as
ln Lhls case Lo a separaLe deparLmenL of Lhe governmenL
ln Lhelr 8eply Lhe peLlLloners lnslsL LhaL Lhe aboveclLed measures are noL
appllcable Lo Lhem because Lhey do noL own more Lhan seven hecLares of
agrlculLural land Moreover assumlng arguendo LhaL Lhe rules were lnLended Lo
cover Lhem also Lhe sald measures are neverLheless noL ln force because Lhey have
noL been publlshed as requlred by law and Lhe rullng of Lhls CourL ln 1oooJo v
1oveto
10
As for LCl 474 Lhe same ls lneffecLlve for Lhe addlLlonal reason LhaL a
mere leLLer of lnsLrucLlon could noL have repealed Lhe presldenLlal decree
l
AlLhough holdlng nelLher purse nor sword and so regarded as Lhe weakesL of Lhe
Lhree deparLmenLs of Lhe governmenL Lhe [udlclary ls noneLheless vesLed wlLh Lhe
power Lo annul Lhe acLs of elLher Lhe leglslaLlve or Lhe execuLlve or of boLh when
noL conformable Lo Lhe fundamenLal law 1hls ls Lhe reason for whaL some quarLers
call Lhe docLrlne of [udlclal supremacy Lven so Lhls power ls noL llghLly assumed or
readlly exerclsed 1he docLrlne of separaLlon of powers lmposes upon Lhe courLs a
proper resLralnL born of Lhe naLure of Lhelr funcLlons and of Lhelr respecL for Lhe
oLher deparLmenLs ln sLrlklng down Lhe acLs of Lhe leglslaLlve and Lhe execuLlve as
unconsLlLuLlonal 1he pollcy lndeed ls a blend of courLesy and cauLlon 1o doubL ls
Lo susLaln 1he Lheory ls LhaL before Lhe acL was done or Lhe law was enacLed
203

earnesL sLudles were made by Congress or Lhe resldenL or boLh Lo lnsure LhaL Lhe
ConsLlLuLlon would noL be breached
ln addlLlon Lhe ConsLlLuLlon lLself lays down sLrlngenL condlLlons for a declaraLlon
of unconsLlLuLlonallLy requlrlng Lherefor Lhe concurrence of a ma[orlLy of Lhe
members of Lhe Supreme CourL who Look parL ln Lhe dellberaLlons and voLed on Lhe
lssue durlng Lhelr sesslon en banc
11
And as esLabllshed by [udge made docLrlne
Lhe CourL wlll assume [urlsdlcLlon over a consLlLuLlonal quesLlon only lf lL ls shown
LhaL Lhe essenLlal requlslLes of a [udlclal lnqulry lnLo such a quesLlon are flrsL
saLlsfled 1hus Lhere musL be an acLual case or conLroversy lnvolvlng a confllcL of
legal rlghLs suscepLlble of [udlclal deLermlnaLlon Lhe consLlLuLlonal quesLlon musL
have been opporLunely ralsed by Lhe proper parLy and Lhe resoluLlon of Lhe
quesLlon ls unavoldably necessary Lo Lhe declslon of Lhe case lLself
12

WlLh parLlcular regard Lo Lhe requlremenL of proper parLy as applled ln Lhe cases
before us we hold LhaL Lhe same ls saLlsfled by Lhe peLlLloners and lnLervenors
because each of Lhem has susLalned or ls ln danger of susLalnlng an lmmedlaLe
ln[ury as a resulL of Lhe acLs or measures complalned of
13
And even lf sLrlcLly
speaklng Lhey are noL covered by Lhe deflnlLlon lL ls sLlll wlLhln Lhe wlde dlscreLlon
of Lhe CourL Lo walve Lhe requlremenL and so remove Lhe lmpedlmenL Lo lLs
addresslng and resolvlng Lhe serlous consLlLuLlonal quesLlons ralsed
ln Lhe flrsL Lmergency owers Cases
14
ordlnary clLlzens and Laxpayers were
allowed Lo quesLlon Lhe consLlLuLlonallLy of several execuLlve orders lssued by
resldenL Culrlno alLhough Lhey were lnvoklng only an lndlrecL and general lnLeresL
shared ln common wlLh Lhe publlc 1he CourL dlsmlssed Lhe ob[ecLlon LhaL Lhey
were noL proper parLles and ruled LhaL Lhe LranscendenLal lmporLance Lo Lhe
publlc of Lhese cases demands LhaL Lhey be seLLled prompLly and deflnlLely
brushlng aslde lf we musL LechnlcallLles of procedure We have slnce Lhen applled
Lhls excepLlon ln many oLher cases
13

1he oLher abovemenLloned requlslLes have also been meL ln Lhe presenL peLlLlons
ln musL be sLressed LhaL desplLe Lhe lnhlblLlons presslng upon Lhe CourL when
confronLed wlLh consLlLuLlonal lssues llke Lhe ones now before lL lL wlll noL heslLaLe
Lo declare a law or acL lnvalld when lL ls convlnced LhaL Lhls musL be done ln
arrlvlng aL Lhls concluslon lLs only crlLerlon wlll be Lhe ConsLlLuLlon as Cod and lLs
consclence glve lL Lhe llghL Lo probe lLs meanlng and dlscover lLs purpose ersonal
moLlves and pollLlcal conslderaLlons are lrrelevancles LhaL cannoL lnfluence lLs
declslon 8landlshmenL ls as lneffecLual as lnLlmldaLlon
lor all Lhe awesome power of Lhe Congress and Lhe LxecuLlve Lhe CourL wlll noL
heslLaLe Lo make Lhe hammer fall and heavlly Lo use !usLlce Laurels plLhy
language where Lhe acLs of Lhese deparLmenLs or of any publlc offlclal beLray Lhe
peoples wlll as expressed ln Lhe ConsLlLuLlon
lL need only be added Lo borrow agaln Lhe words of !usLlce Laurel LhaL
when Lhe [udlclary medlaLes Lo allocaLe consLlLuLlonal boundarles lL does noL
asserL any superlorlLy over Lhe oLher deparLmenLs lL does noL ln reallLy nulllfy or
lnvalldaLe an acL of Lhe LeglslaLure buL only asserLs Lhe solemn and sacred
obllgaLlon asslgned Lo lL by Lhe ConsLlLuLlon Lo deLermlne confllcLlng clalms of
auLhorlLy under Lhe ConsLlLuLlon and Lo esLabllsh for Lhe parLles ln an acLual
conLroversy Lhe rlghLs whlch LhaL lnsLrumenL secures and guaranLees Lo Lhem 1hls
ls ln LruLh all LhaL ls lnvolved ln whaL ls Lermed [udlclal supremacy whlch properly
ls Lhe power of [udlclal revlew under Lhe ConsLlLuLlon
16

1he cases before us caLegorlcally ralse consLlLuLlonal quesLlons LhaL Lhls CourL musL
caLegorlcally resolve And so we shall
ll
We proceed flrsL Lo Lhe examlnaLlon of Lhe prellmlnary lssues before resolvlng Lhe
more serlous challenges Lo Lhe consLlLuLlonallLy of Lhe several measures lnvolved ln
Lhese peLlLlons
1he promulgaLlon of u no 27 by resldenL Marcos ln Lhe exerclse of hls powers
under marLlal law has already been susLalned ln Coozoles v sttello and we flnd no
reason Lo modlfy or reverse lL on LhaL lssue As for Lhe power of resldenL Aqulno Lo
promulgaLe roc no 131 and LC nos 228 and 229 Lhe same was auLhorlzed
under SecLlon 6 of Lhe 1ranslLory rovlslons of Lhe 1987 ConsLlLuLlon quoLed
above
1he sald measures were lssued by resldenL Aqulno before !uly 27 1987 when Lhe
Congress of Lhe hlllpplnes was formally convened and Look over leglslaLlve power
from her 1hey are noL mldnlghL enacLmenLs lnLended Lo preempL Lhe leglslaLure
because LC no 228 was lssued on !uly 17 1987 and Lhe oLher measures le
roc no 131 and LC no 229 were boLh lssued on !uly 22 1987 nelLher ls lL
correcL Lo say LhaL Lhese measures ceased Lo be valld when she losL her leglslaLlve
power for llke any sLaLuLe Lhey conLlnue Lo be ln force unless modlfled or repealed
by subsequenL law or declared lnvalld by Lhe courLs A sLaLuLe does noL lpso focto
become lnoperaLlve slmply because of Lhe dlssoluLlon of Lhe leglslaLure LhaL
enacLed lL 8y Lhe same Loken resldenL Aqulnos loss of leglslaLlve power dld noL
have Lhe effecL of lnvalldaLlng all Lhe measures enacLed by her when and as long as
she possessed lL
SlgnlflcanLly Lhe Congress she ls alleged Lo have undercuL has noL re[ecLed buL ln
facL subsLanLlally afflrmed Lhe challenged measures and has speclflcally provlded
LhaL Lhey shall be suppleLory Lo 8A no 6637 whenever noL lnconslsLenL wlLh lLs
provlslons
17
lndeed some porLlons of Lhe sald measures llke Lhe creaLlon of Lhe
30 bllllon fund ln SecLlon 2 of roc no 131 and SecLlons 20 and 21 of LC no
229 have been lncorporaLed by reference ln Lhe CA8 Law
18

1haL fund as earller noLed ls lLself belng quesLloned on Lhe ground LhaL lL does noL
conform Lo Lhe requlremenLs of a valld approprlaLlon as speclfled ln Lhe
ConsLlLuLlon Clearly however roc no 131 ls noL an approprlaLlon measure even
lf lL does provlde for Lhe creaLlon of sald fund for LhaL ls noL lLs prlnclpal purpose
An approprlaLlon law ls one Lhe prlmary and speclflc purpose of whlch ls Lo
auLhorlze Lhe release of publlc funds from Lhe Lreasury
19
1he creaLlon of Lhe fund
206

ls only lncldenLal Lo Lhe maln ob[ecLlve of Lhe proclamaLlon whlch ls agrarlan
reform
lL should follow LhaL Lhe speclflc consLlLuLlonal provlslons lnvoked Lo wlL SecLlon
24 and SecLlon 23(4) of ArLlcle vl are noL appllcable WlLh parLlcular reference Lo
SecLlon 24 Lhls obvlously could noL have been complled wlLh for Lhe slmple reason
LhaL Lhe Pouse of 8epresenLaLlves whlch now has Lhe excluslve power Lo lnlLlaLe
approprlaLlon measures had noL yeL been convened when Lhe proclamaLlon was
lssued 1he leglslaLlve power was Lhen solely vesLed ln Lhe resldenL of Lhe
hlllpplnes who embodled as lL were boLh houses of Congress
1he argumenL of some of Lhe peLlLloners LhaL roc no 131 and LC no 229 should
be lnvalldaLed because Lhey do noL provlde for reLenLlon llmlLs as requlred by
ArLlcle xlll SecLlon 4 of Lhe ConsLlLuLlon ls no longer Lenable 8A no 6637 does
provlde for such llmlLs now ln SecLlon 6 of Lhe law whlch ln facL ls one of lLs mosL
conLroverslal provlslons 1hls secLlon declares
8eLenLlon LlmlLs LxcepL as oLherwlse provlded ln Lhls AcL no person may own or
reLaln dlrecLly or lndlrecLly any publlc or prlvaLe agrlculLural land Lhe slze of whlch
shall vary accordlng Lo facLors governlng a vlable famllyslzed farm such as
commodlLy produced Lerraln lnfrasLrucLure and soll ferLlllLy as deLermlned by Lhe
resldenLlal Agrarlan 8eform Councll (A8C) creaLed hereunder buL ln no case shall
reLenLlon by Lhe landowner exceed flve (3) hecLares 1hree (3) hecLares may be
awarded Lo each chlld of Lhe landowner sub[ecL Lo Lhe followlng quallflcaLlons (1)
LhaL he ls aL leasL flfLeen (13) years of age and (2) LhaL he ls acLually Lllllng Lhe land
or dlrecLly managlng Lhe farm rovlded 1haL landowners whose lands have been
covered by resldenLlal uecree no 27 shall be allowed Lo keep Lhe area orlglnally
reLalned by Lhem Lhereunder furLher 1haL orlglnal homesLead granLees or dlrecL
compulsory helrs who sLlll own Lhe orlglnal homesLead aL Lhe Llme of Lhe approval
of Lhls AcL shall reLaln Lhe same areas as long as Lhey conLlnue Lo culLlvaLe sald
homesLead
1he argumenL LhaL LC no 229 vlolaLes Lhe consLlLuLlonal requlremenL LhaL a blll
shall have only one sub[ecL Lo be expressed ln lLs LlLle deserves only shorL
aLLenLlon lL ls seLLled LhaL Lhe LlLle of Lhe blll does noL have Lo be a caLalogue of lLs
conLenLs and wlll sufflce lf Lhe maLLers embodled ln Lhe LexL are relevanL Lo each
oLher and may be lnferred from Lhe LlLle
20

1he CourL wryly observes LhaL durlng Lhe pasL dlcLaLorshlp every presldenLlal
lssuance by whaLever name lL was called had Lhe force and effecL of law because lL
came from resldenL Marcos Such are Lhe ways of despoLs Pence lL ls fuLlle Lo
argue as Lhe peLlLloners do ln C8 no 79744 LhaL LCl 474 could noL have repealed
u no 27 because Lhe former was only a leLLer of lnsLrucLlon 1he lmporLanL Lhlng
ls LhaL lL was lssued by resldenL Marcos whose word was law durlng LhaL Llme
8uL for all Lhelr perempLorlness Lhese lssuances from Lhe resldenL Marcos sLlll had
Lo comply wlLh Lhe requlremenL for publlcaLlon as Lhls CourL held ln 1oooJo v
1oveto
21
Pence unless publlshed ln Lhe Cfflclal CazeLLe ln accordance wlLh ArLlcle
2 of Lhe Clvll Code Lhey could noL have any force and effecL lf Lhey were among
Lhose enacLmenLs successfully challenged ln LhaL case LCl 474 was publlshed
Lhough ln Lhe Cfflclal CazeLLe daLed november 291976)
llnally Lhere ls Lhe conLenLlon of Lhe publlc respondenL ln C8 no 78742 LhaL Lhe
wrlL of mandamus cannoL lssue Lo compel Lhe performance of a dlscreLlonary acL
especlally by a speclflc deparLmenL of Lhe governmenL 1haL ls Lrue as a general
proposlLlon buL ls sub[ecL Lo one lmporLanL quallflcaLlon CorrecLly and caLegorlcally
sLaLed Lhe rule ls LhaL mandamus wlll lle Lo compel Lhe dlscharge of Lhe
dlscreLlonary duLy lLself buL noL Lo conLrol Lhe dlscreLlon Lo be exerclsed ln oLher
words mandamus can lssue Lo requlre acLlon only buL noL speclflc acLlon
Whenever a duLy ls lmposed upon a publlc offlclal and an unnecessary and
unreasonable delay ln Lhe exerclse of such duLy occurs lf lL ls a clear duLy lmposed
by law Lhe courLs wlll lnLervene by Lhe exLraordlnary legal remedy of mandamus Lo
compel acLlon lf Lhe duLy ls purely mlnlsLerlal Lhe courLs wlll requlre speclflc
acLlon lf Lhe duLy ls purely dlscreLlonary Lhe courLs by mooJomos wlll requlre
acLlon only lor example lf an lnferlor courL publlc offlclal or board should for an
unreasonable lengLh of Llme fall Lo declde a parLlcular quesLlon Lo Lhe greaL
deLrlmenL of all parLles concerned or a courL should refuse Lo Lake [urlsdlcLlon of a
cause when Lhe law clearly gave lL [urlsdlcLlon mandamus wlll lssue ln Lhe flrsL case
Lo requlre a declslon and ln Lhe second Lo requlre LhaL [urlsdlcLlon be Laken of Lhe
cause
22

And whlle lL ls Lrue LhaL as a rule Lhe wrlL wlll noL be proper as long as Lhere ls sLlll a
plaln speedy and adequaLe remedy avallable from Lhe admlnlsLraLlve auLhorlLles
resorL Lo Lhe courLs may sLlll be permlLLed lf Lhe lssue ralsed ls a quesLlon of law
23

lll
1here are LradlLlonal dlsLlncLlons beLween Lhe pollce power and Lhe power of
emlnenL domaln LhaL loglcally preclude Lhe appllcaLlon of boLh powers aL Lhe same
Llme on Lhe same sub[ecL ln Lhe case of clty of 8oqolo v NAwA5A
24
for example
where a law requlred Lhe Lransfer of all munlclpal waLerworks sysLems Lo Lhe
nAWASA ln exchange for lLs asseLs of equlvalenL value Lhe CourL held LhaL Lhe
power belng exerclsed was emlnenL domaln because Lhe properLy lnvolved was
wholesome and lnLended for a publlc use roperLy condemned under Lhe pollce
power ls noxlous or lnLended for a noxlous purpose such as a bulldlng on Lhe verge
of collapse whlch should be demollshed for Lhe publlc safeLy or obscene maLerlals
whlch should be desLroyed ln Lhe lnLeresL of publlc morals 1he conflscaLlon of such
properLy ls noL compensable unllke Lhe Laklng of properLy under Lhe power of
exproprlaLlon whlch requlres Lhe paymenL of [usL compensaLlon Lo Lhe owner
ln Lhe case of leoosylvoolo cool co v Moboo
23
!usLlce Polmes lald down Lhe llmlLs
of Lhe pollce power ln a famous aphorlsm 1he general rule aL leasL ls LhaL whlle
properLy may be regulaLed Lo a cerLaln exLenL lf regulaLlon goes Loo far lL wlll be
recognlzed as a Laklng 1he regulaLlon LhaL wenL Loo far was a law prohlblLlng
mlnlng whlch mlghL cause Lhe subsldence of sLrucLures for human hablLaLlon
207

consLrucLed on Lhe land surface 1hls was reslsLed by a coal company whlch had
earller granLed a deed Lo Lhe land over lLs mlne buL reserved all mlnlng rlghLs
Lhereunder wlLh Lhe granLee assumlng all rlsks and walvlng any damage clalm 1he
CourL held Lhe law could noL be susLalned wlLhouL compensaLlng Lhe granLor
!usLlce 8randels flled a lone dlssenL ln whlch he argued LhaL Lhere was a valld
exerclse of Lhe pollce power Pe sald
Lvery resLrlcLlon upon Lhe use of properLy lmposed ln Lhe exerclse of Lhe pollce
power deprlves Lhe owner of some rlghL LhereLofore en[oyed and ls ln LhaL sense
an abrldgmenL by Lhe SLaLe of rlghLs ln properLy wlLhouL maklng compensaLlon 8uL
resLrlcLlon lmposed Lo proLecL Lhe publlc healLh safeLy or morals from dangers
LhreaLened ls noL a Laklng 1he resLrlcLlon here ln quesLlon ls merely Lhe prohlblLlon
of a noxlous use 1he properLy so resLrlcLed remalns ln Lhe possesslon of lLs owner
1he sLaLe does noL approprlaLe lL or make any use of lL 1he sLaLe merely prevenLs
Lhe owner from maklng a use whlch lnLerferes wlLh paramounL rlghLs of Lhe publlc
Whenever Lhe use prohlblLed ceases Lo be noxlous as lL may because of furLher
changes ln local or soclal condlLlons Lhe resLrlcLlon wlll have Lo be removed and
Lhe owner wlll agaln be free Lo en[oy hls properLy as hereLofore
8ecenL Lrends however would lndlcaLe noL a polarlzaLlon buL a mlngllng of Lhe
pollce power and Lhe power of emlnenL domaln wlLh Lhe laLLer belng used as an
lmplemenL of Lhe former llke Lhe power of LaxaLlon 1he employmenL of Lhe Laxlng
power Lo achleve a pollce purpose has long been accepLed
26
As for Lhe power of
exproprlaLlon rof !ohn ! CosLonls of Lhe unlverslLy of llllnols College of Law
(referrlng Lo Lhe earller case of Luclld v Ambler 8ealLy Co 272 uS 363 whlch
susLalned a zonlng law under Lhe pollce power) makes Lhe followlng slgnlflcanL
remarks
Luclld moreover was declded ln an era when [udges locaLed Lhe ollce and
emlnenL domaln powers on dlfferenL planeLs Cenerally speaklng Lhey vlewed
emlnenL domaln as encompasslng publlc acqulslLlon of prlvaLe properLy for
lmprovemenLs LhaL would be avallable for publlc use llLerally consLrued 1o Lhe
pollce power on Lhe oLher hand Lhey asslgned Lhe less lnLruslve Lask of prevenLlng
harmful exLernallLles a polnL reflecLed ln Lhe Luclld oplnlons rellance on an analogy
Lo nulsance law Lo bolsLer lLs supporL of zonlng So long as suppresslon of a
prlvaLely auLhored harm bore a plauslble relaLlon Lo some leglLlmaLe publlc
purpose Lhe perLlnenL measure need have afforded no compensaLlon whaLever
WlLh Lhe progresslve growLh of governmenLs lnvolvemenL ln land use Lhe dlsLance
beLween Lhe Lwo powers has conLracLed conslderably 1oday governmenL ofLen
employs emlnenL domaln lnLerchangeably wlLh or as a useful complemenL Lo Lhe
pollce power a Lrend expressly approved ln Lhe Supreme CourLs 1934 declslon ln
8erman v arker whlch broadened Lhe reach of emlnenL domalns publlc use LesL
Lo maLch LhaL of Lhe pollce powers sLandard of publlc purpose
27

1he 8erman case susLalned a redevelopmenL pro[ecL and Lhe lmprovemenL of
bllghLed areas ln Lhe ulsLrlcL of Columbla as a proper exerclse of Lhe pollce power
Cn Lhe role of emlnenL domaln ln Lhe aLLalnmenL of Lhls purpose !usLlce uouglas
declared
lf Lhose who govern Lhe ulsLrlcL of Columbla declde LhaL Lhe naLlons CaplLal should
be beauLlful as well as sanlLary Lhere ls noLhlng ln Lhe llfLh AmendmenL LhaL sLands
ln Lhe way
Cnce Lhe ob[ecL ls wlLhln Lhe auLhorlLy of Congress Lhe rlghL Lo reallze lL Lhrough
Lhe exerclse of emlnenL domaln ls clear
lor Lhe power of emlnenL domaln ls merely Lhe means Lo Lhe end
28

ln leoo ceottol 1toospottotloo co v New otk clty
29
declded by a 63 voLe ln
1978 Lhe uS Supreme CourL susLalned Lhe respondenLs Landmarks reservaLlon
Law under whlch Lhe owners of Lhe Crand CenLral 1ermlnal had noL been allowed
Lo consLrucL a mulLlsLory offlce bulldlng over Lhe 1ermlnal whlch had been
deslgnaLed a hlsLorlc landmark reservaLlon of Lhe landmark was held Lo be a valld
ob[ecLlve of Lhe pollce power 1he problem however was LhaL Lhe owners of Lhe
1ermlnal would be deprlved of Lhe rlghL Lo use Lhe alrspace above lL alLhough oLher
landowners ln Lhe area could do so over Lhelr respecLlve properLles Whlle lnslsLlng
LhaL Lhere was here no Laklng Lhe CourL noneLheless recognlzed cerLaln
compensaLory rlghLs accrulng Lo Crand CenLral 1ermlnal whlch lL sald would
undoubLedly mlLlgaLe Lhe loss caused by Lhe regulaLlon 1hls falr compensaLlon
as he called lL was explalned by rof CosLonls ln Lhls wlse
ln reLurn for reLalnlng Lhe 1ermlnal slLe ln lLs prlsLlne landmark sLaLus enn CenLral
was auLhorlzed Lo Lransfer Lo nelghborlng properLles Lhe auLhorlzed buL unused
rlghLs accrulng Lo Lhe slLe prlor Lo Lhe 1ermlnals deslgnaLlon as a landmark Lhe
rlghLs whlch would have been exhausLed by Lhe 39sLory bulldlng LhaL Lhe clLy
refused Lo counLenance aLop Lhe 1ermlnal revalllng bulk resLrlcLlons on
nelghborlng slLes were proporLlonaLely relaxed LheoreLlcally enabllng enn CenLral
Lo recoup lLs losses aL Lhe 1ermlnal slLe by consLrucLlng or selllng Lo oLhers Lhe rlghL
Lo consLrucL larger hence more proflLable bulldlngs on Lhe Lransferee slLes
30

1he cases before us presenL no knoLLy compllcaLlon lnsofar as Lhe quesLlon of
compensable Laklng ls concerned 1o Lhe exLenL LhaL Lhe measures under challenge
merely prescrlbe reLenLlon llmlLs for landowners Lhere ls an exerclse of Lhe pollce
power for Lhe regulaLlon of prlvaLe properLy ln accordance wlLh Lhe ConsLlLuLlon
8uL where Lo carry ouL such regulaLlon lL becomes necessary Lo deprlve such
owners of whaLever lands Lhey may own ln excess of Lhe maxlmum area allowed
Lhere ls deflnlLely a Laklng under Lhe power of emlnenL domaln for whlch paymenL
of [usL compensaLlon ls lmperaLlve 1he Laklng conLemplaLed ls noL a mere
llmlLaLlon of Lhe use of Lhe land WhaL ls requlred ls Lhe surrender of Lhe LlLle Lo and
Lhe physlcal possesslon of Lhe sald excess and all beneflclal rlghLs accrulng Lo Lhe
owner ln favor of Lhe farmerbeneflclary 1hls ls deflnlLely an exerclse noL of Lhe
pollce power buL of Lhe power of emlnenL domaln
208

WheLher as an exerclse of Lhe pollce power or of Lhe power of emlnenL domaln Lhe
several measures before us are challenged as vlolaLlve of Lhe due process and equal
proLecLlon clauses
1he challenge Lo roc no 131 and LC nos 228 and 299 on Lhe ground LhaL no
reLenLlon llmlLs are prescrlbed has already been dlscussed and dlsmlssed lL ls noLed
LhaL alLhough Lhey exclLed many blLLer exchanges durlng Lhe dellberaLlon of Lhe
CA8 Law ln Congress Lhe reLenLlon llmlLs flnally agreed upon are curlously
enough noL belng quesLloned ln Lhese peLlLlons We Lherefore do noL dlscuss Lhem
here 1he CourL wlll come Lo Lhe oLher clalmed vlolaLlons of due process ln
connecLlon wlLh our examlnaLlon of Lhe adequacy of [usL compensaLlon as requlred
under Lhe power of exproprlaLlon
1he argumenL of Lhe small farmers LhaL Lhey have been denled equal proLecLlon
because of Lhe absence of reLenLlon llmlLs has also become academlc under SecLlon
6 of 8A no 6637 SlgnlflcanLly Lhey Loo have noL quesLloned Lhe area of such
llmlLs 1here ls also Lhe complalnL LhaL Lhey should noL be made Lo share Lhe
burden of agrarlan reform an ob[ecLlon also made by Lhe sugar planLers on Lhe
ground LhaL Lhey belong Lo a parLlcular class wlLh parLlcular lnLeresLs of Lhelr own
Powever no evldence has been submlLLed Lo Lhe CourL LhaL Lhe requlslLes of a valld
classlflcaLlon have been vlolaLed
ClasslflcaLlon has been deflned as Lhe grouplng of persons or Lhlngs slmllar Lo each
oLher ln cerLaln parLlculars and dlfferenL from each oLher ln Lhese same parLlculars
31
1o be valld lL musL conform Lo Lhe followlng requlremenLs (1) lL musL be based
on subsLanLlal dlsLlncLlons (2) lL musL be germane Lo Lhe purposes of Lhe law (3) lL
musL noL be llmlLed Lo exlsLlng condlLlons only and (4) lL musL apply equally Lo all
Lhe members of Lhe class
32
1he CourL flnds LhaL all Lhese requlslLes have been meL
by Lhe measures here challenged as arblLrary and dlscrlmlnaLory
Lqual proLecLlon slmply means LhaL all persons or Lhlngs slmllarly slLuaLed musL be
LreaLed allke boLh as Lo Lhe rlghLs conferred and Lhe llablllLles lmposed
33
1he
peLlLloners have noL shown LhaL Lhey belong Lo a dlfferenL class and enLlLled Lo a
dlfferenL LreaLmenL 1he argumenL LhaL noL only landowners buL also owners of
oLher properLles musL be made Lo share Lhe burden of lmplemenLlng land reform
musL be re[ecLed 1here ls a subsLanLlal dlsLlncLlon beLween Lhese Lwo classes of
owners LhaL ls clearly vlslble excepL Lo Lhose who wlll noL see 1here ls no need Lo
elaboraLe on Lhls maLLer ln any evenL Lhe Congress ls allowed a wlde leeway ln
provldlng for a valld classlflcaLlon lLs declslon ls accorded recognlLlon and respecL
by Lhe courLs of [usLlce excepL only where lLs dlscreLlon ls abused Lo Lhe deLrlmenL
of Lhe 8lll of 8lghLs
lL ls worLh remarklng aL Lhls [uncLure LhaL a sLaLuLe may be susLalned under Lhe
pollce power only lf Lhere ls a concurrence of Lhe lawful sub[ecL and Lhe lawful
meLhod uL oLherwlse Lhe lnLeresLs of Lhe publlc generally as dlsLlngulshed from
Lhose of a parLlcular class requlre Lhe lnLerference of Lhe SLaLe and no less
lmporLanL Lhe means employed are reasonably necessary for Lhe aLLalnmenL of Lhe
purpose soughL Lo be achleved and noL unduly oppresslve upon lndlvlduals
34
As
Lhe sub[ecL and purpose of agrarlan reform have been lald down by Lhe
ConsLlLuLlon lLself we may say LhaL Lhe flrsL requlremenL has been saLlsfled WhaL
remalns Lo be examlned ls Lhe valldlLy of Lhe meLhod employed Lo achleve Lhe
consLlLuLlonal goal
Cne of Lhe baslc prlnclples of Lhe democraLlc sysLem ls LhaL where Lhe rlghLs of Lhe
lndlvldual are concerned Lhe end does noL [usLlfy Lhe means lL ls noL enough LhaL
Lhere be a valld ob[ecLlve lL ls also necessary LhaL Lhe means employed Lo pursue lL
be ln keeplng wlLh Lhe ConsLlLuLlon Mere expedlency wlll noL excuse consLlLuLlonal
shorLcuLs 1here ls no quesLlon LhaL noL even Lhe sLrongesL moral convlcLlon or Lhe
mosL urgenL publlc need sub[ecL only Lo a few noLable excepLlons wlll excuse Lhe
bypasslng of an lndlvlduals rlghLs lL ls no exaggeraLlon Lo say LhaL a person
lnvoklng a rlghL guaranLeed under ArLlcle lll of Lhe ConsLlLuLlon ls a ma[orlLy of one
even as agalnsL Lhe resL of Lhe naLlon who would deny hlm LhaL rlghL
1haL rlghL covers Lhe persons llfe hls llberLy and hls properLy under SecLlon 1 of
ArLlcle lll of Lhe ConsLlLuLlon WlLh regard Lo hls properLy Lhe owner en[oys Lhe
added proLecLlon of SecLlon 9 whlch reafflrms Lhe famlllar rule LhaL prlvaLe
properLy shall noL be Laken for publlc use wlLhouL [usL compensaLlon
1hls brlngs us now Lo Lhe power of emlnenL domaln
lv
LmlnenL domaln ls an lnherenL power of Lhe SLaLe LhaL enables lL Lo forclbly acqulre
prlvaLe lands lnLended for publlc use upon paymenL of [usL compensaLlon Lo Lhe
owner Cbvlously Lhere ls no need Lo exproprlaLe where Lhe owner ls wllllng Lo sell
under Lerms also accepLable Lo Lhe purchaser ln whlch case an ordlnary deed of
sale may be agreed upon by Lhe parLles
33
lL ls only where Lhe owner ls unwllllng Lo
sell or cannoL accepL Lhe prlce or oLher condlLlons offered by Lhe vendee LhaL Lhe
power of emlnenL domaln wlll come lnLo play Lo asserL Lhe paramounL auLhorlLy of
Lhe SLaLe over Lhe lnLeresLs of Lhe properLy owner rlvaLe rlghLs musL Lhen yleld Lo
Lhe lrreslsLlble demands of Lhe publlc lnLeresL on Lhe Llmehonored [usLlflcaLlon as
ln Lhe case of Lhe pollce power LhaL Lhe welfare of Lhe people ls Lhe supreme law
8uL for all lLs prlmacy and urgency Lhe power of exproprlaLlon ls by no means
absoluLe (as lndeed no power ls absoluLe) 1he llmlLaLlon ls found ln Lhe
consLlLuLlonal ln[uncLlon LhaL prlvaLe properLy shall noL be Laken for publlc use
wlLhouL [usL compensaLlon and ln Lhe abundanL [urlsprudence LhaL has evolved
from Lhe lnLerpreLaLlon of Lhls prlnclple 8aslcally Lhe requlremenLs for a proper
exerclse of Lhe power are (1) publlc use and (2) [usL compensaLlon
LeL us dlspose flrsL of Lhe argumenL ralsed by Lhe peLlLloners ln C8 no 79310 LhaL
Lhe SLaLe should flrsL dlsLrlbuLe publlc agrlculLural lands ln Lhe pursulL of agrarlan
reform lnsLead of lmmedlaLely dlsLurblng properLy rlghLs by forclbly acqulrlng
prlvaLe agrlculLural lands arenLheLlcally lL ls noL correcL Lo say LhaL only publlc
agrlculLural lands may be covered by Lhe CA8 as Lhe ConsLlLuLlon calls for Lhe [usL
dlsLrlbuLlon of all agrlculLural lands ln any evenL Lhe declslon Lo redlsLrlbuLe
209

prlvaLe agrlculLural lands ln Lhe manner prescrlbed by Lhe CA8 was made by Lhe
leglslaLlve and execuLlve deparLmenLs ln Lhe exerclse of Lhelr dlscreLlon We are noL
[usLlfled ln revlewlng LhaL dlscreLlon ln Lhe absence of a clear showlng LhaL lL has
been abused
A becomlng courLesy admonlshes us Lo respecL Lhe declslons of Lhe pollLlcal
deparLmenLs when Lhey declde whaL ls known as Lhe pollLlcal quesLlon As
explalned by Chlef !usLlce Concepclon ln Lhe case of 1ooJo v coeoco
36

1he Lerm pollLlcal quesLlon connoLes whaL lL means ln ordlnary parlance namely
a quesLlon of pollcy lL refers Lo Lhose quesLlons whlch under Lhe ConsLlLuLlon are
Lo be declded by Lhe people ln Lhelr soverelgn capaclLy or ln regard Lo whlch full
dlscreLlonary auLhorlLy has been delegaLed Lo Lhe leglslaLlve or execuLlve branch of
Lhe governmenL lL ls concerned wlLh lssues dependenL upon Lhe wlsdom noL
legallLy of a parLlcular measure
lL ls Lrue LhaL Lhe concepL of Lhe pollLlcal quesLlon has been consLrlcLed wlLh Lhe
enlargemenL of [udlclal power whlch now lncludes Lhe auLhorlLy of Lhe courLs Lo
deLermlne wheLher or noL Lhere has been a grave abuse of dlscreLlon amounLlng Lo
lack or excess of [urlsdlcLlon on Lhe parL of any branch or lnsLrumenLallLy of Lhe
CovernmenL
37
Lven so Lhls should noL be consLrued as a llcense for us Lo reverse
Lhe oLher deparLmenLs slmply because Lhelr vlews may noL colnclde wlLh ours
1he leglslaLure and Lhe execuLlve have been seen flL ln Lhelr wlsdom Lo lnclude ln
Lhe CA8 Lhe redlsLrlbuLlon of prlvaLe landholdlngs (even as Lhe dlsLrlbuLlon of
publlc agrlculLural lands ls flrsL provlded for whlle also conLlnulng apace under Lhe
ubllc Land AcL and oLher cognaLe laws) 1he CourL sees no [usLlflcaLlon Lo lnLerpose
lLs auLhorlLy whlch we may asserL only lf we belleve LhaL Lhe pollLlcal declslon ls noL
unwlse buL lllegal We do noL flnd lL Lo be so
ln u5 v cbooJletuoobot wotet lowet compooy
38
lL was held
Congress havlng deLermlned as lL dld by Lhe AcL of March 31909 LhaL Lhe enLlre SL
Marys rlver beLween Lhe Amerlcan bank and Lhe lnLernaLlonal llne as well as all of
Lhe upland norLh of Lhe presenL shlp canal LhroughouL lLs enLlre lengLh was
necessary for Lhe purpose of navlgaLlon of sald waLers and Lhe waLers connecLed
LherewlLh LhaL deLermlnaLlon ls concluslve ln condemnaLlon proceedlngs
lnsLlLuLed by Lhe unlLed SLaLes under LhaL AcL and Lhere ls no room for [udlclal
revlew of Lhe [udgmenL of Congress
As earller observed Lhe requlremenL for publlc use has already been seLLled for us
by Lhe ConsLlLuLlon lLself no less Lhan Lhe 1987 CharLer calls for agrarlan reform
whlch ls Lhe reason why prlvaLe agrlculLural lands are Lo be Laken from Lhelr
owners sub[ecL Lo Lhe prescrlbed maxlmum reLenLlon llmlLs 1he purposes
speclfled ln u no 27 roc no 131 and 8A no 6637 are only an elaboraLlon of
Lhe consLlLuLlonal ln[uncLlon LhaL Lhe SLaLe adopL Lhe necessary measures Lo
encourage and underLake Lhe [usL dlsLrlbuLlon of all agrlculLural lands Lo enable
farmers who are landless Lo own dlrecLly or collecLlvely Lhe lands Lhey Llll 1haL
publlc use as pronounced by Lhe fundamenLal law lLself musL be blndlng on us
1he second requlremenL le Lhe paymenL of [usL compensaLlon needs a longer
and more LhoughLful examlnaLlon
!usL compensaLlon ls deflned as Lhe full and falr equlvalenL of Lhe properLy Laken
from lLs owner by Lhe exproprlaLor
39
lL has been repeaLedly sLressed by Lhls CourL
LhaL Lhe measure ls noL Lhe Lakers galn buL Lhe owners loss
40
1he word [usL ls
used Lo lnLenslfy Lhe meanlng of Lhe word compensaLlon Lo convey Lhe ldea LhaL
Lhe equlvalenL Lo be rendered for Lhe properLy Lo be Laken shall be real subsLanLlal
full ample
41

lL bears repeaLlng LhaL Lhe measures challenged ln Lhese peLlLlons conLemplaLe
more Lhan a mere regulaLlon of Lhe use of prlvaLe lands under Lhe pollce power We
deal here wlLh an acLual Laklng of prlvaLe agrlculLural lands LhaL has dlspossessed
Lhe owners of Lhelr properLy and deprlved Lhem of all lLs beneflclal use and
en[oymenL Lo enLlLle Lhem Lo Lhe [usL compensaLlon mandaLed by Lhe ConsLlLuLlon
As held ln kepobllc of tbe lblllpploes v costellvl
42
Lhere ls compensable Laklng
when Lhe followlng condlLlons concur (1) Lhe exproprlaLor musL enLer a prlvaLe
properLy (2) Lhe enLry musL be for more Lhan a momenLary perlod (3) Lhe enLry
musL be under warranL or color of legal auLhorlLy (4) Lhe properLy musL be devoLed
Lo publlc use or oLherwlse lnformally approprlaLed or ln[urlously affecLed and (3)
Lhe uLlllzaLlon of Lhe properLy for publlc use musL be ln such a way as Lo ousL Lhe
owner and deprlve hlm of beneflclal en[oymenL of Lhe properLy All Lhese requlslLes
are envlsloned ln Lhe measures before us
Where Lhe SLaLe lLself ls Lhe exproprlaLor lL ls noL necessary for lL Lo make a deposlL
upon lLs Laklng possesslon of Lhe condemned properLy as Lhe compensaLlon ls a
publlc charge Lhe good falLh of Lhe publlc ls pledged for lLs paymenL and all Lhe
resources of LaxaLlon may be employed ln ralslng Lhe amounL
43
neverLheless
SecLlon 16(e) of Lhe CA8 Law provldes LhaL
upon recelpL by Lhe landowner of Lhe correspondlng paymenL or ln case of
re[ecLlon or no response from Lhe landowner upon Lhe deposlL wlLh an accesslble
bank deslgnaLed by Lhe uA8 of Lhe compensaLlon ln cash or ln L8 bonds ln
accordance wlLh Lhls AcL Lhe uA8 shall Lake lmmedlaLe possesslon of Lhe land and
shall requesL Lhe proper 8eglsLer of ueeds Lo lssue a 1ransfer CerLlflcaLe of 1lLle
(1C1) ln Lhe name of Lhe 8epubllc of Lhe hlllpplnes 1he uA8 shall LhereafLer
proceed wlLh Lhe redlsLrlbuLlon of Lhe land Lo Lhe quallfled beneflclarles
Cb[ecLlon ls ralsed however Lo Lhe manner of flxlng Lhe [usL compensaLlon whlch
lL ls clalmed ls enLrusLed Lo Lhe admlnlsLraLlve auLhorlLles ln vlolaLlon of [udlclal
prerogaLlves Speclflc reference ls made Lo SecLlon 16(d) whlch provldes LhaL ln
case of Lhe re[ecLlon or dlsregard by Lhe owner of Lhe offer of Lhe governmenL Lo
buy hls land
Lhe uA8 shall conducL summary admlnlsLraLlve proceedlngs Lo deLermlne Lhe
compensaLlon for Lhe land by requlrlng Lhe landowner Lhe L8 and oLher
lnLeresLed parLles Lo submlL evldence as Lo Lhe [usL compensaLlon for Lhe land
wlLhln flfLeen (13) days from Lhe recelpL of Lhe noLlce AfLer Lhe explraLlon of Lhe
210

above perlod Lhe maLLer ls deemed submlLLed for declslon 1he uA8 shall declde
Lhe case wlLhln LhlrLy (30) days afLer lL ls submlLLed for declslon
1o be sure Lhe deLermlnaLlon of [usL compensaLlon ls a funcLlon addressed Lo Lhe
courLs of [usLlce and may noL be usurped by any oLher branch or offlclal of Lhe
governmenL l2A v uoloy
44
resolved a challenge Lo several decrees promulgaLed
by resldenL Marcos provldlng LhaL Lhe [usL compensaLlon for properLy under
exproprlaLlon should be elLher Lhe assessmenL of Lhe properLy by Lhe governmenL
or Lhe sworn valuaLlon Lhereof by Lhe owner whlchever was lower ln declarlng
Lhese decrees unconsLlLuLlonal Lhe CourL held Lhrough Mr !usLlce Pugo L
CuLlerrez !r
1he meLhod of ascerLalnlng [usL compensaLlon under Lhe aforeclLed decrees
consLlLuLes lmpermlsslble encroachmenL on [udlclal prerogaLlves lL Lends Lo render
Lhls CourL lnuLlle ln a maLLer whlch under Lhls ConsLlLuLlon ls reserved Lo lL for flnal
deLermlnaLlon
1hus alLhough ln an exproprlaLlon proceedlng Lhe courL Lechnlcally would sLlll have
Lhe power Lo deLermlne Lhe [usL compensaLlon for Lhe properLy followlng Lhe
appllcable decrees lLs Lask would be relegaLed Lo slmply sLaLlng Lhe lower value of
Lhe properLy as declared elLher by Lhe owner or Lhe assessor As a necessary
consequence lL would be useless for Lhe courL Lo appolnL commlssloners under
8ule 67 of Lhe 8ules of CourL Moreover Lhe need Lo saLlsfy Lhe due process clause
ln Lhe Laklng of prlvaLe properLy ls seemlngly fulfllled slnce lL cannoL be sald LhaL a
[udlclal proceedlng was noL had before Lhe acLual Laklng Powever Lhe sLrlcL
appllcaLlon of Lhe decrees durlng Lhe proceedlngs would be noLhlng shorL of a mere
formallLy or charade as Lhe courL has only Lo choose beLween Lhe valuaLlon of Lhe
owner and LhaL of Lhe assessor and lLs cholce ls always llmlLed Lo Lhe lower of Lhe
Lwo 1he courL cannoL exerclse lLs dlscreLlon or lndependence ln deLermlnlng whaL
ls [usL or falr Lven a grade school pupll could subsLlLuLe for Lhe [udge lnsofar as Lhe
deLermlnaLlon of consLlLuLlonal [usL compensaLlon ls concerned
x x x
ln Lhe presenL peLlLlon we are once agaln confronLed wlLh Lhe same quesLlon of
wheLher Lhe courLs under u no 1333 whlch conLalns Lhe same provlslon on [usL
compensaLlon as lLs predecessor decrees sLlll have Lhe power and auLhorlLy Lo
deLermlne [usL compensaLlon lndependenL of whaL ls sLaLed by Lhe decree and Lo
Lhls effecL Lo appolnL commlssloners for such purpose
1hls Llme we answer ln Lhe afflrmaLlve
x x x
lL ls vlolaLlve of due process Lo deny Lhe owner Lhe opporLunlLy Lo prove LhaL Lhe
valuaLlon ln Lhe Lax documenLs ls unfalr or wrong And lL ls repulslve Lo Lhe baslc
concepLs of [usLlce and falrness Lo allow Lhe haphazard work of a mlnor bureaucraL
or clerk Lo absoluLely prevall over Lhe [udgmenL of a courL promulgaLed only afLer
experL commlssloners have acLually vlewed Lhe properLy afLer evldence and
argumenLs pro and con have been presenLed and afLer all facLors and
conslderaLlons essenLlal Lo a falr and [usL deLermlnaLlon have been [udlclously
evaluaLed
A readlng of Lhe aforeclLed SecLlon 16(d) wlll readlly show LhaL lL does noL suffer
from Lhe arblLrarlness LhaL rendered Lhe challenged decrees consLlLuLlonally
ob[ecLlonable AlLhough Lhe proceedlngs are descrlbed as summary Lhe landowner
and oLher lnLeresLed parLles are neverLheless allowed an opporLunlLy Lo submlL
evldence on Lhe real value of Lhe properLy 8uL more lmporLanLly Lhe
deLermlnaLlon of Lhe [usL compensaLlon by Lhe uA8 ls noL by any means flnal and
concluslve upon Lhe landowner or any oLher lnLeresLed parLy for SecLlon 16(f)
clearly provldes
Any parLy who dlsagrees wlLh Lhe declslon may brlng Lhe maLLer Lo Lhe courL of
proper [urlsdlcLlon for flnal deLermlnaLlon of [usL compensaLlon
1he deLermlnaLlon made by Lhe uA8 ls only prellmlnary unless accepLed by all
parLles concerned CLherwlse Lhe courLs of [usLlce wlll sLlll have Lhe rlghL Lo revlew
wlLh flnallLy Lhe sald deLermlnaLlon ln Lhe exerclse of whaL ls admlLLedly a [udlclal
funcLlon
1he second and more serlous ob[ecLlon Lo Lhe provlslons on [usL compensaLlon ls
noL as easlly resolved
1hls refers Lo SecLlon 18 of Lhe CA8 Law provldlng ln full as follows
SLC 18 valuaLlon and Mode of CompensaLlon 1he L8 shall compensaLe Lhe
landowner ln such amounL as may be agreed upon by Lhe landowner and Lhe uA8
and Lhe L8 ln accordance wlLh Lhe crlLerla provlded for ln SecLlons 16 and 17 and
oLher perLlnenL provlslons hereof or as may be flnally deLermlned by Lhe courL as
Lhe [usL compensaLlon for Lhe land
1he compensaLlon shall be pald ln one of Lhe followlng modes aL Lhe opLlon of Lhe
landowner
(1) Cash paymenL under Lhe followlng Lerms and condlLlons
(a) lor lands above flfLy (30) hecLares lnsofar as Lhe excess hecLarage ls concerned
1wenLyflve percenL (23) cash Lhe balance Lo be pald ln governmenL flnanclal
lnsLrumenLs negoLlable aL any Llme
(b) lor lands above LwenLyfour (24) hecLares and up Lo flfLy (30) hecLares 1hlrLy
percenL (30) cash Lhe balance Lo be pald ln governmenL flnanclal lnsLrumenLs
negoLlable aL any Llme
(c) lor lands LwenLyfour (24) hecLares and below 1hlrLyflve percenL (33) cash
Lhe balance Lo be pald ln governmenL flnanclal lnsLrumenLs negoLlable aL any Llme
(2) Shares of sLock ln governmenLowned or conLrolled corporaLlons L8 preferred
shares physlcal asseLs or oLher quallfled lnvesLmenLs ln accordance wlLh guldellnes
seL by Lhe A8C
(3) 1ax credlLs whlch can be used agalnsL any Lax llablllLy
(4) L8 bonds whlch shall have Lhe followlng feaLures
(a) MarkeL lnLeresL raLes allgned wlLh 91day Lreasury blll raLes 1en percenL (10)
of Lhe face value of Lhe bonds shall maLure every year from Lhe daLe of lssuance
211

unLll Lhe LenLh (10Lh) year rovlded 1haL should Lhe landowner choose Lo forego
Lhe cash porLlon wheLher ln full or ln parL he shall be pald correspondlngly ln L8
bonds
(b) 1ransferablllLy and negoLlablllLy Such L8 bonds may be used by Lhe landowner
hls successorsln lnLeresL or hls asslgns up Lo Lhe amounL of Lhelr face value for
any of Lhe followlng
(l) AcqulslLlon of land or oLher real properLles of Lhe governmenL lncludlng asseLs
under Lhe AsseL rlvaLlzaLlon rogram and oLher asseLs foreclosed by governmenL
flnanclal lnsLlLuLlons ln Lhe same provlnce or reglon where Lhe lands for whlch Lhe
bonds were pald are slLuaLed
(ll) AcqulslLlon of shares of sLock of governmenLowned or conLrolled corporaLlons
or shares of sLock owned by Lhe governmenL ln prlvaLe corporaLlons
(lll) SubsLlLuLlon for sureLy or ball bonds for Lhe provlslonal release of accused
persons or for performance bonds
(lv) SecurlLy for loans wlLh any governmenL flnanclal lnsLlLuLlon provlded Lhe
proceeds of Lhe loans shall be lnvesLed ln an economlc enLerprlse preferably ln a
small and medlum scale lndusLry ln Lhe same provlnce or reglon as Lhe land for
whlch Lhe bonds are pald
(v) aymenL for varlous Laxes and fees Lo governmenL rovlded 1haL Lhe use of
Lhese bonds for Lhese purposes wlll be llmlLed Lo a cerLaln percenLage of Lhe
ouLsLandlng balance of Lhe flnanclal lnsLrumenLs rovlded furLher 1haL Lhe A8C
shall deLermlne Lhe percenLages menLloned above
(vl) aymenL for LulLlon fees of Lhe lmmedlaLe famlly of Lhe orlglnal bondholder ln
governmenL unlverslLles colleges Lrade schools and oLher lnsLlLuLlons
(vll) aymenL for fees of Lhe lmmedlaLe famlly of Lhe orlglnal bondholder ln
governmenL hosplLals and
(vlll) Such oLher uses as Lhe A8C may from Llme Lo Llme allow
1he conLenLlon of Lhe peLlLloners ln C8 no 79777 ls LhaL Lhe above provlslon ls
unconsLlLuLlonal lnsofar as lL requlres Lhe owners of Lhe exproprlaLed properLles Lo
accepL [usL compensaLlon Lherefor ln less Lhan money whlch ls Lhe only medlum of
paymenL allowed ln supporL of Lhls conLenLlon Lhey clLe [urlsprudence holdlng
LhaL
1he fundamenLal rule ln exproprlaLlon maLLers ls LhaL Lhe owner of Lhe properLy
exproprlaLed ls enLlLled Lo a [usL compensaLlon whlch should be nelLher more nor
less whenever lL ls posslble Lo make Lhe assessmenL Lhan Lhe money equlvalenL of
sald properLy !usL compensaLlon has always been undersLood Lo be Lhe [usL and
compleLe equlvalenL of Lhe loss whlch Lhe owner of Lhe Lhlng exproprlaLed has Lo
suffer by reason of Lhe exproprlaLlon
43
(Lmphasls supplled)
ln !M 1uazon Co v Land 1enure AdmlnlsLraLlon
46
Lhls CourL held
lL ls wellseLLled LhaL [usL compensaLlon means Lhe equlvalenL for Lhe value of Lhe
properLy aL Lhe Llme of lLs Laklng AnyLhlng beyond LhaL ls more and anyLhlng shorL
of LhaL ls less Lhan [usL compensaLlon lL means a falr and full equlvalenL for Lhe
loss susLalned whlch ls Lhe measure of Lhe lndemnlLy noL whaLever galn would
accrue Lo Lhe exproprlaLlng enLlLy 1he markeL value of Lhe land Laken ls Lhe [usL
compensaLlon Lo whlch Lhe owner of condemned properLy ls enLlLled Lhe markeL
value belng LhaL sum of money whlch a person deslrous buL noL compelled Lo buy
and an owner wllllng buL noL compelled Lo sell would agree on as a prlce Lo be
glven and recelved for such properLy (Lmphasls supplled)
ln Lhe unlLed SLaLes where much of our [urlsprudence on Lhe sub[ecL has been
derlved Lhe welghL of auLhorlLy ls also Lo Lhe effecL LhaL [usL compensaLlon for
properLy exproprlaLed ls payable only ln money and noL oLherwlse 1hus
1he medlum of paymenL of compensaLlon ls ready money or cash 1he condemnor
cannoL compel Lhe owner Lo accepL anyLhlng buL money nor can Lhe owner compel
or requlre Lhe condemnor Lo pay hlm on any oLher basls Lhan Lhe value of Lhe
properLy ln money aL Lhe Llme and ln Lhe manner prescrlbed by Lhe ConsLlLuLlon
and Lhe sLaLuLes When Lhe power of emlnenL domaln ls resorLed Lo Lhere musL be
a sLandard medlum of paymenL blndlng upon boLh parLles and Lhe law has flxed
LhaL sLandard as money ln cash
47
(Lmphasls supplled)
arL cash and deferred paymenLs are noL and cannoL ln Lhe naLure of Lhlngs be
regarded as a rellable and consLanL sLandard of compensaLlon
48

!usL compensaLlon for properLy Laken by condemnaLlon means a falr equlvalenL ln
money whlch musL be pald aL leasL wlLhln a reasonable Llme afLer Lhe Laklng and lL
ls noL wlLhln Lhe power of Lhe LeglslaLure Lo subsLlLuLe for such paymenL fuLure
obllgaLlons bonds or oLher valuable advanLage
49
(Lmphasls supplled)
lL cannoL be denled from Lhese cases LhaL Lhe LradlLlonal medlum for Lhe paymenL
of [usL compensaLlon ls money and no oLher And so conformably has [usL
compensaLlon been pald ln Lhe pasL solely ln LhaL medlum Powever we do noL
deal here wlLh Lhe LradlLlonal excerclse of Lhe power of emlnenL domaln 1hls ls noL
an ordlnary exproprlaLlon where only a speclflc properLy of relaLlvely llmlLed area ls
soughL Lo be Laken by Lhe SLaLe from lLs owner for a speclflc and perhaps local
purpose
WhaL we deal wlLh here ls a revoluLlonary klnd of exproprlaLlon
1he exproprlaLlon before us affecLs all prlvaLe agrlculLural lands whenever found
and of whaLever klnd as long as Lhey are ln excess of Lhe maxlmum reLenLlon llmlLs
allowed Lhelr owners 1hls klnd of exproprlaLlon ls lnLended for Lhe beneflL noL only
of a parLlcular communlLy or of a small segmenL of Lhe populaLlon buL of Lhe enLlre
llllplno naLlon from all levels of our socleLy from Lhe lmpoverlshed farmer Lo Lhe
landgluLLed owner lLs purpose does noL cover only Lhe whole LerrlLory of Lhls
counLry buL goes beyond ln Llme Lo Lhe foreseeable fuLure whlch lL hopes Lo secure
and edlfy wlLh Lhe vlslon and Lhe sacrlflce of Lhe presenL generaLlon of llllplnos
CeneraLlons yeL Lo come are as lnvolved ln Lhls program as we are Loday alLhough
hopefully only as beneflclarles of a rlcher and more fulfllllng llfe we wlll guaranLee
Lo Lhem Lomorrow Lhrough our LhoughLfulness Loday And flnally leL lL noL be
forgoLLen LhaL lL ls no less Lhan Lhe ConsLlLuLlon lLself LhaL has ordalned Lhls
212

revoluLlon ln Lhe farms calllng for a [usL dlsLrlbuLlon among Lhe farmers of lands
LhaL have hereLofore been Lhe prlson of Lhelr dreams buL can now become Lhe key
aL leasL Lo Lhelr dellverance
Such a program wlll lnvolve noL mere mllllons of pesos 1he cosL wlll be
Lremendous Conslderlng Lhe vasL areas of land sub[ecL Lo exproprlaLlon under Lhe
laws before us we esLlmaLe LhaL hundreds of bllllons of pesos wlll be needed far
more lndeed Lhan Lhe amounL of 30 bllllon lnlLlally approprlaLed whlch ls already
sLaggerlng as lL ls by our presenL sLandards Such amounL ls ln facL noL even fully
avallable aL Lhls Llme
We assume LhaL Lhe framers of Lhe ConsLlLuLlon were aware of Lhls dlfflculLy when
Lhey called for agrarlan reform as a Lop prlorlLy pro[ecL of Lhe governmenL lL ls a
parL of Lhls assumpLlon LhaL when Lhey envlsloned Lhe exproprlaLlon LhaL would be
needed Lhey also lnLended LhaL Lhe [usL compensaLlon would have Lo be pald noL ln
Lhe orLhodox way buL a less convenLlonal lf more pracLlcal meLhod 1here can be no
doubL LhaL Lhey were aware of Lhe flnanclal llmlLaLlons of Lhe governmenL and had
no llluslons LhaL Lhere would be enough money Lo pay ln cash and ln full for Lhe
lands Lhey wanLed Lo be dlsLrlbuLed among Lhe farmers We may Lherefore assume
LhaL Lhelr lnLenLlon was Lo allow such manner of paymenL as ls now provlded for by
Lhe CA8 Law parLlcularly Lhe paymenL of Lhe balance (lf Lhe owner cannoL be pald
fully wlLh money) or lndeed of Lhe enLlre amounL of Lhe [usL compensaLlon wlLh
oLher Lhlngs of value We may also suppose LhaL whaL Lhey had ln mlnd was a
slmllar scheme of paymenL as LhaL prescrlbed ln u no 27 whlch was Lhe law ln
force aL Lhe Llme Lhey dellberaLed on Lhe new CharLer and wlLh whlch Lhey
presumably agreed ln prlnclple
1he CourL has noL found ln Lhe records of Lhe ConsLlLuLlonal Commlsslon any
caLegorlcal agreemenL among Lhe members regardlng Lhe meanlng Lo be glven Lhe
concepL of [usL compensaLlon as applled Lo Lhe comprehenslve agrarlan reform
program belng conLemplaLed 1here was Lhe suggesLlon Lo flne Lune Lhe
requlremenL Lo sulL Lhe demands of Lhe pro[ecL even as lL was also felL LhaL Lhey
should leave lL Lo Congress Lo deLermlne how paymenL should be made Lo Lhe
landowner and relmbursemenL requlred from Lhe farmerbeneflclarles Such
lnnovaLlons as progresslve compensaLlon and SLaLesubsldlzed compensaLlon
were also proposed ln Lhe end however no speclal deflnlLlon of Lhe [usL
compensaLlon for Lhe lands Lo be exproprlaLed was reached by Lhe Commlsslon
30

Cn Lhe oLher hand Lhere ls noLhlng ln Lhe records elLher LhaL mlllLaLes agalnsL Lhe
assumpLlons we are maklng of Lhe general senLlmenLs and lnLenLlon of Lhe
members on Lhe conLenL and manner of Lhe paymenL Lo be made Lo Lhe landowner
ln Lhe llghL of Lhe magnlLude of Lhe expendlLure and Lhe llmlLaLlons of Lhe
exproprlaLor
WlLh Lhese assumpLlons Lhe CourL hereby declares LhaL Lhe conLenL and manner of
Lhe [usL compensaLlon provlded for ln Lhe afore quoLed SecLlon 18 of Lhe CA8 Law
ls noL vlolaLlve of Lhe ConsLlLuLlon We do noL mlnd admlLLlng LhaL a cerLaln degree
of pragmaLlsm has lnfluenced our declslon on Lhls lssue buL afLer all Lhls CourL ls
noL a clolsLered lnsLlLuLlon removed from Lhe reallLles and demands of socleLy or
obllvlous Lo Lhe need for lLs enhancemenL 1he CourL ls as acuLely anxlous as Lhe
resL of our people Lo see Lhe goal of agrarlan reform achleved aL lasL afLer Lhe
frusLraLlons and deprlvaLlons of our peasanL masses durlng all Lhese dlsappolnLlng
decades We are aware LhaL lnvalldaLlon of Lhe sald secLlon wlll resulL ln Lhe
nulllflcaLlon of Lhe enLlre program kllllng Lhe farmers hopes even as Lhey approach
reallzaLlon and resurrecLlng Lhe specLre of dlsconLenL and dlssenL ln Lhe resLless
counLryslde 1haL ls noL ln our vlew Lhe lnLenLlon of Lhe ConsLlLuLlon and LhaL ls noL
whaL we shall decree Loday
AccepLlng Lhe Lheory LhaL paymenL of Lhe [usL compensaLlon ls noL always requlred
Lo be made fully ln money we flnd furLher LhaL Lhe proporLlon of cash paymenL Lo
Lhe oLher Lhlngs of value consLlLuLlng Lhe LoLal paymenL as deLermlned on Lhe basls
of Lhe areas of Lhe lands exproprlaLed ls noL unduly oppresslve upon Lhe
landowner lL ls noLed LhaL Lhe smaller Lhe land Lhe blgger Lhe paymenL ln money
prlmarlly because Lhe small landowner wlll be needlng lL more Lhan Lhe blg
landowners who can afford a blgger balance ln bonds and oLher Lhlngs of value no
less lmporLanLly Lhe governmenL flnanclal lnsLrumenLs maklng up Lhe balance of
Lhe paymenL are negoLlable aL any Llme 1he oLher modes whlch are llkewlse
avallable Lo Lhe landowner aL hls opLlon are also noL unreasonable because
paymenL ls made ln shares of sLock L8 bonds oLher properLles or asseLs Lax
credlLs and oLher Lhlngs of value equlvalenL Lo Lhe amounL of [usL compensaLlon
AdmlLLedly Lhe compensaLlon conLemplaLed ln Lhe law wlll cause Lhe landowners
blg and small noL a llLLle lnconvenlence As already remarked Lhls cannoL be
avolded neverLheless lL ls devouLly hoped LhaL Lhese counLrymen of ours
consclous as we know Lhey are of Lhe need for Lhelr forebearance and even
sacrlflce wlll noL begrudge us Lhelr lndlspensable share ln Lhe aLLalnmenL of Lhe
ldeal of agrarlan reform CLherwlse our pursulL of Lhls eluslve goal wlll be llke Lhe
quesL for Lhe Poly Crall
1he complalnL agalnsL Lhe effecLs of nonreglsLraLlon of Lhe land under LC no 229
does noL seem Lo be vlable any more as lL appears LhaL SecLlon 4 of Lhe sald Crder
has been superseded by SecLlon 14 of Lhe CA8 Law 1hls repeaLs Lhe requlslLes of
reglsLraLlon as embodled ln Lhe earller measure buL does noL provlde as Lhe laLLer
dld LhaL ln case of fallure or refusal Lo reglsLer Lhe land Lhe valuaLlon Lhereof shall
be LhaL glven by Lhe provlnclal or clLy assessor for Lax purposes Cn Lhe conLrary
Lhe CA8 Law says LhaL Lhe [usL compensaLlon shall be ascerLalned on Lhe basls of
Lhe facLors menLloned ln lLs SecLlon 17 and ln Lhe manner provlded for ln SecLlon
16
1he lasL ma[or challenge Lo CA8 ls LhaL Lhe landowner ls dlvesLed of hls properLy
even before acLual paymenL Lo hlm ln full of [usL compensaLlon ln conLravenLlon of
a well accepLed prlnclple of emlnenL domaln
213

1he recognlzed rule lndeed ls LhaL LlLle Lo Lhe properLy exproprlaLed shall pass
from Lhe owner Lo Lhe exproprlaLor only upon full paymenL of Lhe [usL
compensaLlon !urlsprudence on Lhls seLLled prlnclple ls conslsLenL boLh here and ln
oLher democraLlc [urlsdlcLlons 1hus
1lLle Lo properLy whlch ls Lhe sub[ecL of condemnaLlon proceedlngs does noL vesL
Lhe condemnor unLll Lhe [udgmenL flxlng [usL compensaLlon ls enLered and pald buL
Lhe condemnors LlLle relaLes back Lo Lhe daLe on whlch Lhe peLlLlon under Lhe
LmlnenL uomaln AcL or Lhe commlssloners reporL under Lhe Local lmprovemenL
AcL ls flled
31

alLhough Lhe rlghL Lo approprlaLe and use land Laken for a canal ls compleLe aL
Lhe Llme of enLry LlLle Lo Lhe properLy Laken remalns ln Lhe owner unLll paymenL ls
acLually made
32
(Lmphasls supplled)
ln kennedy v lndlanapolls
33
Lhe uS Supreme CourL clLed several cases holdlng LhaL
LlLle Lo properLy does noL pass Lo Lhe condemnor unLll [usL compensaLlon had
acLually been made ln facL Lhe declslons appear Lo be unlformly Lo Lhls effecL As
early as 1838 ln kobottom v Mclote
34
lL was held LhaL acLual paymenL Lo Lhe
owner of Lhe condemned properLy was a condlLlon precedenL Lo Lhe lnvesLmenL of
Lhe LlLle Lo Lhe properLy ln Lhe SLaLe albelL noL Lo Lhe approprlaLlon of lL Lo publlc
use ln kexfotJ v kolqbt
33
Lhe CourL of Appeals of new ?ork sald LhaL Lhe
consLrucLlon upon Lhe sLaLuLes was LhaL Lhe fee dld noL vesL ln Lhe SLaLe unLll Lhe
paymenL of Lhe compensaLlon alLhough Lhe auLhorlLy Lo enLer upon and
approprlaLe Lhe land was compleLe prlor Lo Lhe paymenL kennedy furLher sald LhaL
boLh on prlnclple and auLhorlLy Lhe rule ls LhaL Lhe rlghL Lo enLer on and use Lhe
properLy ls compleLe as soon as Lhe properLy ls acLually approprlaLed under Lhe
auLhorlLy of law for a publlc use bot tbot tbe tltle Joes oot poss ftom tbe owoet
wltboot bls cooseot ootll jost compeosotloo bos beeo moJe to blm
Cur own Supreme CourL has held ln vlsoyoo kefloloq co v comos ooJ loteJes
36

LhaL
lf Lhe laws whlch we have exhlblLed or clLed ln Lhe precedlng dlscusslon are
aLLenLlvely examlned lL wlll be apparenL LhaL Lhe meLhod of exproprlaLlon adopLed
ln Lhls [urlsdlcLlon ls such as Lo afford absoluLe reassurance LhaL oo plece of looJ coo
be floolly ooJ lttevocobly tokeo ftom oo oowlllloq owoet ootll compeosotloo ls polJ
(Lmphasls supplled)
lL ls Lrue LhaL u no 27 expressly ordered Lhe emanclpaLlon of LenanLfarmer as
CcLober 21 1972 and declared LhaL he shall be deemed Lhe owner of a porLlon of
land conslsLlng of a famllyslzed farm excepL LhaL no LlLle Lo Lhe land owned by hlm
was Lo be acLually lssued Lo hlm unless and unLll he had become a fullfledged
member of a duly recognlzed farmers cooperaLlve lL was undersLood however
LhaL full paymenL of Lhe [usL compensaLlon also had Lo be made flrsL conformably
Lo Lhe consLlLuLlonal requlremenL
When LC no 228 caLegorlcally sLaLed ln lLs SecLlon 1 LhaL
All quallfled farmerbeneflclarles are now deemed full owners as of CcLober 21
1972 of Lhe land Lhey acqulred by vlrLue of resldenLlal uecree no 27 (Lmphasls
supplled)
lL was obvlously referrlng Lo lands already valldly acqulred under Lhe sald decree
afLer proof of fullfledged membershlp ln Lhe farmers cooperaLlves and full
paymenL of [usL compensaLlon Pence lL was also perfecLly proper for Lhe Crder Lo
also provlde ln lLs SecLlon 2 LhaL Lhe lease renLals pald Lo Lhe landowner by Lhe
farmer beneflclary afLer CcLober 21 1972 (pendlng Lransfer of ownershlp afLer full
paymenL of [usL compensaLlon) shall be consldered as advance paymenL for Lhe
land
1he CA8 Law for lLs parL condlLlons Lhe Lransfer of possesslon and ownershlp of
Lhe land Lo Lhe governmenL on recelpL by Lhe landowner of Lhe correspondlng
paymenL or Lhe deposlL by Lhe uA8 of Lhe compensaLlon ln cash or L8 bonds wlLh
an accesslble bank unLll Lhen LlLle also remalns wlLh Lhe landowner
37
no ouLrlghL
change of ownershlp ls conLemplaLed elLher
Pence Lhe argumenL LhaL Lhe assalled measures vlolaLe due process by arblLrarlly
Lransferrlng LlLle before Lhe land ls fully pald for musL also be re[ecLed
lL ls worLh sLresslng aL Lhls polnL LhaL all rlghLs acqulred by Lhe LenanLfarmer under
u no 27 as recognlzed under LC no 228 are reLalned by hlm even now under
8A no 6637 1hls should counLerbalance Lhe express provlslon ln SecLlon 6 of Lhe
sald law LhaL Lhe landowners whose lands have been covered by resldenLlal
uecree no 27 shall be allowed Lo keep Lhe area orlglnally reLalned by Lhem
Lhereunder furLher 1haL orlglnal homesLead granLees or dlrecL compulsory helrs
who sLlll own Lhe orlglnal homesLead aL Lhe Llme of Lhe approval of Lhls AcL shall
reLaln Lhe same areas as long as Lhey conLlnue Lo culLlvaLe sald homesLead
ln connecLlon wlLh Lhese reLalned rlghLs lL does noL appear ln C8 no 78742 LhaL
Lhe appeal flled by Lhe peLlLloners wlLh Lhe Cfflce of Lhe resldenL has already been
resolved AlLhough we have sald LhaL Lhe docLrlne of exhausLlon of admlnlsLraLlve
remedles need noL preclude lmmedlaLe resorL Lo [udlclal acLlon Lhere are facLual
lssues LhaL have yeL Lo be examlned on Lhe admlnlsLraLlve level especlally Lhe clalm
LhaL Lhe peLlLloners are noL covered by LCl 474 because Lhey do noL own oLher
agrlculLural lands Lhan Lhe sub[ecLs of Lhelr peLlLlon
Cbvlously Lhe CourL cannoL resolve Lhese lssues ln any evenL assumlng LhaL Lhe
peLlLloners have noL yeL exerclsed Lhelr reLenLlon rlghLs lf any under u no 27
Lhe CourL holds LhaL Lhey are enLlLled Lo Lhe new reLenLlon rlghLs provlded for by
8A no 6637 whlch ln facL are on Lhe whole more llberal Lhan Lhose granLed by
Lhe decree
v
1he CA8 Law and Lhe oLher enacLmenLs also lnvolved ln Lhese cases have been Lhe
sub[ecL of blLLer aLLack from Lhose who polnL Lo Lhe shorLcomlngs of Lhese
measures and ask LhaL Lhey be scrapped enLlrely 1o be sure Lhese enacLmenLs are
less Lhan perfecL lndeed Lhey should be conLlnuously reexamlned and rehoned
214

LhaL Lhey may be sharper lnsLrumenLs for Lhe beLLer proLecLlon of Lhe farmers
rlghLs 8uL we have Lo sLarL somewhere ln Lhe pursulL of agrarlan reform we do
noL Lread on famlllar ground buL grope on Lerraln fraughL wlLh plLfalls and expecLed
dlfflculLles 1hls ls lnevlLable 1he CA8 Law ls noL a Lrled and LesLed pro[ecL Cn Lhe
conLrary Lo use !usLlce Polmess words lL ls an experlmenL as all llfe ls an
experlmenL and so we learn as we venLure forward and lf necessary by our own
mlsLakes We cannoL expecL perfecLlon alLhough we should sLrlve for lL by all
means MeanLlme we sLruggle as besL we can ln freelng Lhe farmer from Lhe lron
shackles LhaL have unconsclonably and for so long feLLered hls soul Lo Lhe soll
8y Lhe declslon we reach Loday all ma[or legal obsLacles Lo Lhe comprehenslve
agrarlan reform program are removed Lo clear Lhe way for Lhe Lrue freedom of Lhe
farmer We may now gllmpse Lhe day he wlll be released noL only from wanL buL
also from Lhe explolLaLlon and dlsdaln of Lhe pasL and from hls own feellngs of
lnadequacy and helplessness AL lasL hls servlLude wlll be ended forever AL lasL Lhe
farm on whlch he Lolls wlll be hls farm lL wlll be hls porLlon of Lhe MoLher LarLh
LhaL wlll glve hlm noL only Lhe sLaff of llfe buL also Lhe [oy of llvlng And where once
lL bred for hlm only deep despalr now can he see ln lL Lhe frulLlon of hls hopes for a
more fulfllllng fuLure now aL lasL can he banlsh from hls small ploL of earLh hls
lnsecurlLles and dark resenLmenLs and rebulld ln lL Lhe muslc and Lhe dream

September 9 2008
Gk No 47800 December 2 1940
MAkIMC CALALANG pet|t|oner vs A D JILLIAMS L1 AL respondentsMax|mo
Ca|a|ang |n h|s on beha|f

1he case of Calalang vs Wllllams ls known for Lhe eleganL exposlLlon of Lhe
deflnlLlon of soclal [usLlce ln Lhls case !usLlce Laurel deflned soclal [usLlce as
nelLher communlsm nor despoLlsm nor aLomlsm nor anarchy" buL humanlzaLlon
of laws and equallzaLlon of soclal and economlc forces by Lhe SLaLe so LhaL [usLlce ln
lLs raLlonal and ob[ecLlvely secular concepLlon may aL leasL be approxlmaLed
As l browse Lhrough Lhe enLlre case l found ouL LhaL Lhere ls more Lo Lhls case Lhan
Lhe deflnlLlon of soclal [usLlce ln facL anoLher lmporLanL lssue ralsed here ls
wheLher Lhere was a valld delegaLlon of power by Lhe naLlonal Assembly Lo Lhe
ulrecLor of ubllc Works LeL us begln wlLh Lhe facLs of Lhe case
lacLs
ln pursuance of CommonwealLh AcL 348 whlch mandaLes Lhe Lhe ulrecLor of ubllc
Works wlLh Lhe approval of Lhe SecreLary of ubllc Works and CommunlcaLlons
shall promulgaLe Lhe necessary rules and regulaLlons Lo regulaLe and conLrol Lhe
use of and Lrafflc on such roads and sLreeLs Lo promoLe safe LranslL upon and avold
obsLrucLlons on roads and sLreeLs deslgnaLed as naLlonal roads Lhe ulrecLor of
ubllc Works adopLed Lhe resoluLlon of Lhe naLlonal 1rafflc Commlsslon prohlblLlng
Lhe passlng of anlmal drawn vehlcles ln cerLaln sLreeLs ln Manlla
eLlLloner quesLloned Lhls as lL consLlLuLes an undue delegaLlon of leglslaLlve power
lssues
WheLher or noL Lhere ls a undue delegaLlon of leglslaLlve power?
8ullng
1here ls no undue deleagaLlon of leglslaLlve power CommonwealLh AcL 348 does
noL confer leglslaLlve powers Lo Lhe ulrecLor of ubllc Works 1he auLhorlLy
conferred upon Lhem and under whlch Lhey promulgaLed Lhe rules and regulaLlons
now complalned of ls noL Lo deLermlne whaL publlc pollcy demands buL merely Lo
carry ouL Lhe leglslaLlve pollcy lald down by Lhe naLlonal Assembly ln sald AcL Lo
wlL Lo promoLe safe LranslL upon and avold obsLrucLlons on roads and sLreeLs
deslgnaLed as naLlonal roads by acLs of Lhe naLlonal Assembly or by execuLlve
orders of Lhe resldenL of Lhe hlllpplnes" and Lo close Lhem Lemporarlly Lo any or
all classes of Lrafflc whenever Lhe condlLlon of Lhe road or Lhe Lrafflc makes such
acLlon necessary or advlsable ln Lhe publlc convenlence and lnLeresL"
1he delegaLed power lf aL all Lherefore ls noL Lhe deLermlnaLlon of whaL Lhe law
shall be buL merely Lhe ascerLalnmenL of Lhe facLs and clrcumsLances upon whlch
Lhe appllcaLlon of sald law ls Lo be predlcaLed
1o promulgaLe rules and regulaLlons on Lhe use of naLlonal roads and Lo deLermlne
when and how long a naLlonal road should be closed Lo Lrafflc ln vlew of Lhe
condlLlon of Lhe road or Lhe Lrafflc Lhereon and Lhe requlremenLs of publlc
convenlence and lnLeresL ls an admlnlsLraLlve funcLlon whlch cannoL be dlrecLly
dlscharged by Lhe naLlonal Assembly
lL musL depend on Lhe dlscreLlon of some oLher governmenL offlclal Lo whom ls
conflded Lhe duLy of deLermlnlng wheLher Lhe proper occaslon exlsLs for execuLlng
Lhe law 8uL lL cannoL be sald LhaL Lhe exerclse of such dlscreLlon ls Lhe maklng of
Lhe law

Gk No L7S697 Iune 18 1987
VALLN1IN 1IC VS VIDLCGkAM kLGULA1Ck 8CAkD

MLLLnClCPL88L8A I
1hls peLlLlon was flled on SepLember 1 1986 by peLlLloner on hls own behalf and
purporLedly on behalf of oLher vldeogram operaLors adversely affecLed lL assalls
Lhe consLlLuLlonallLy of resldenLlal uecree no 1987 enLlLled An AcL CreaLlng Lhe
vldeogram 8egulaLory 8oard wlLh broad powers Lo regulaLe and supervlse Lhe
vldeogram lndusLry (herelnafLer brlefly referred Lo as Lhe 8CA8u) 1he uecree was
promulgaLed on CcLober 3 1983 and Look effecL on Aprll 10 1986 flfLeen (13) days
afLer compleLlon of lLs publlcaLlon ln Lhe Cfflclal CazeLLe
Cn november 3 1983 a monLh afLer Lhe promulgaLlon of Lhe abovemenLloned
decree resldenLlal uecree no 1994 amended Lhe naLlonal lnLernal 8evenue Code
provldlng lotet ollo
213

SLC 134 vlJeo 1opes 1here shall be collecLed on each processed vldeoLape
casseLLe ready for playback regardless of lengLh an annual Lax of flve pesos
rovlded 1haL locally manufacLured or lmporLed blank vldeo Lapes shall be sub[ecL
Lo sales Lax
Cn CcLober 23 1986 Lhe CreaLer Manlla 1heaLers AssoclaLlon lnLegraLed Movle
roducers lmporLers and ulsLrlbuLors AssoclaLlon of Lhe hlllpplnes and hlllpplne
MoLlon lcLures roducers AssoclaLlon herelnafLer collecLlvely referred Lo as Lhe
lnLervenors were permlLLed by Lhe CourL Lo lnLervene ln Lhe case over peLlLloners
opposlLlon upon Lhe allegaLlons LhaL lnLervenLlon was necessary for Lhe compleLe
proLecLlon of Lhelr rlghLs and LhaL Lhelr survlval and very exlsLence ls LhreaLened
by Lhe unregulaLed prollferaLlon of fllm plracy 1he lnLervenors were LhereafLer
allowed Lo flle Lhelr CommenL ln lnLervenLlon
1he raLlonale behlnd Lhe enacLmenL of Lhe uLC8LL ls seL ouL ln lLs preambular
clauses as follows
1 WPL8LAS Lhe prollferaLlon and unregulaLed clrculaLlon of vldeograms lncludlng
among oLhers vldeoLapes dlscs casseLLes or any Lechnlcal lmprovemenL or
varlaLlon Lhereof have greaLly pre[udlced Lhe operaLlons of movlehouses and
LheaLers and have caused a sharp decllne ln LheaLrlcal aLLendance by aL leasL forLy
percenL (40) and a Lremendous drop ln Lhe collecLlon of sales conLracLors
speclflc amusemenL and oLher Laxes Lhereby resulLlng ln subsLanLlal losses
esLlmaLed aL 430 Mllllon annually ln governmenL revenues
2 WPL8LAS vldeogram(s) esLabllshmenLs collecLlvely earn around 600 Mllllon per
annum from renLals sales and dlsposlLlon of vldeograms and such earnlngs have
noL been sub[ecLed Lo Lax Lhereby deprlvlng Lhe CovernmenL of approxlmaLely
180 Mllllon ln Laxes each year
3 WPL8LAS Lhe unregulaLed acLlvlLles of vldeogram esLabllshmenLs have also
affecLed Lhe vlablllLy of Lhe movle lndusLry parLlcularly Lhe more Lhan 1200 movle
houses and LheaLers LhroughouL Lhe counLry and occasloned lndusLrywlde
dlsplacemenL and unemploymenL due Lo Lhe shuLdown of numerous movlehouses
and LheaLers
4 WPL8LAS ln order Lo ensure naLlonal economlc recovery lL ls lmperaLlve for
Lhe CovernmenL Lo creaLe an envlronmenL conduclve Lo growLh and developmenL
of all buslness lndusLrles lncludlng Lhe movle lndusLry whlch has an accumulaLed
lnvesLmenL of abouL 3 8llllon
3 WPL8LAS proper LaxaLlon of Lhe acLlvlLles of vldeogram esLabllshmenLs wlll noL
only allevlaLe Lhe dlre flnanclal condlLlon of Lhe movle lndusLry upon whlch more
Lhan 73000 famllles and 300000 workers depend for Lhelr llvellhood buL also
provlde an addlLlonal source of revenue for Lhe CovernmenL and aL Lhe same Llme
raLlonallze Lhe hereLofore unconLrolled dlsLrlbuLlon of vldeograms
6 WPL8LAS Lhe rampanL and unregulaLed showlng of obscene vldeogram feaLures
consLlLuLes a clear and presenL danger Lo Lhe moral and splrlLual wellbelng of Lhe
youLh and lmpalrs Lhe mandaLe of Lhe ConsLlLuLlon for Lhe SLaLe Lo supporL Lhe
rearlng of Lhe youLh for clvlc efflclency and Lhe developmenL of moral characLer and
promoLe Lhelr physlcal lnLellecLual and soclal wellbelng
7 WPL8LAS clvlcmlnded clLlzens and groups have called for remedlal measures Lo
curb Lhese blaLanL malpracLlces whlch have flaunLed our censorshlp and copyrlghL
laws
8 WPL8LAS ln Lhe face of Lhese grave emergencles corrodlng Lhe moral values of
Lhe people and beLraylng Lhe naLlonal economlc recovery program bold emergency
measures musL be adopLed wlLh dlspaLch (numberlng of paragraphs supplled)
eLlLloners aLLack on Lhe consLlLuLlonallLy of Lhe uLC8LL resLs on Lhe followlng
grounds
1 SecLlon 10 Lhereof whlch lmposes a Lax of 30 on Lhe gross recelpLs payable Lo
Lhe local governmenL ls a 8luL8 and Lhe same ls noL germane Lo Lhe sub[ecL maLLer
Lhereof
2 1he Lax lmposed ls harsh conflscaLory oppresslve and/or ln unlawful resLralnL of
Lrade ln vlolaLlon of Lhe due process clause of Lhe ConsLlLuLlon
3 1here ls no facLual nor legal basls for Lhe exerclse by Lhe resldenL of Lhe vasL
powers conferred upon hlm by AmendmenL no 6
4 1here ls undue delegaLlon of power and auLhorlLy
3 1he uecree ls an expost focto law and
6 1here ls over regulaLlon of Lhe vldeo lndusLry as lf lL were a nulsance whlch lL ls
noL
We shall conslder Lhe foregolng ob[ecLlons ln setlotlm
1 1he ConsLlLuLlonal requlremenL LhaL every blll shall embrace only one sub[ecL
whlch shall be expressed ln Lhe LlLle Lhereof 1 ls sufflclenLly complled wlLh lf Lhe
LlLle be comprehenslve enough Lo lnclude Lhe general purpose whlch a sLaLuLe
seeks Lo achleve lL ls noL necessary LhaL Lhe LlLle express each and every end LhaL
Lhe sLaLuLe wlshes Lo accompllsh 1he requlremenL ls saLlsfled lf all Lhe parLs of Lhe
sLaLuLe are relaLed and are germane Lo Lhe sub[ecL maLLer expressed ln Lhe LlLle or
as long as Lhey are noL lnconslsLenL wlLh or forelgn Lo Lhe general sub[ecL and LlLle
2

An acL havlng a slngle general sub[ecL lndlcaLed ln Lhe LlLle may conLaln any
number of provlslons no maLLer how dlverse Lhey may be so long as Lhey are noL
lnconslsLenL wlLh or forelgn Lo Lhe general sub[ecL and may be consldered ln
furLherance of such sub[ecL by provldlng for Lhe meLhod and means of carrylng ouL
Lhe general ob[ecL
3
1he rule also ls LhaL Lhe consLlLuLlonal requlremenL as Lo Lhe
LlLle of a blll should noL be so narrowly consLrued as Lo crlpple or lmpede Lhe power
of leglslaLlon
4
lL should be glven pracLlcal raLher Lhan Lechnlcal consLrucLlon
3

1esLed by Lhe foregolng crlLerla peLlLloners conLenLlon LhaL Lhe Lax provlslon of Lhe
uLC8LL ls a rlder ls wlLhouL merlL 1haL secLlon reads lotet ollo
SecLlon 10 1ox oo 5ole leose ot ulsposltloo of vlJeoqtoms noLwlLhsLandlng any
provlslon of law Lo Lhe conLrary Lhe provlnce shall collecL a Lax of LhlrLy percenL
(30) of Lhe purchase prlce or renLal raLe as Lhe case may be for every sale lease
or dlsposlLlon of a vldeogram conLalnlng a reproducLlon of any moLlon plcLure or
216

audlovlsual program llfLy percenL (30) of Lhe proceeds of Lhe Lax collecLed shall
accrue Lo Lhe provlnce and Lhe oLher flfLy percenL (30) shall acrrue Lo Lhe
munlclpallLy where Lhe Lax ls collecLed 8CvluLu 1haL ln MeLropollLan Manlla Lhe
Lax shall be shared equally by Lhe ClLy/MunlclpallLy and Lhe MeLropollLan Manlla
Commlsslon
xxx xxx xxx
1he foregolng provlslon ls allled and germane Lo and ls reasonably necessary for
Lhe accompllshmenL of Lhe general ob[ecL of Lhe uLC8LL whlch ls Lhe regulaLlon of
Lhe vldeo lndusLry Lhrough Lhe vldeogram 8egulaLory 8oard as expressed ln lLs LlLle
1he Lax provlslon ls noL lnconslsLenL wlLh nor forelgn Lo LhaL general sub[ecL and
LlLle As a Lool for regulaLlon
6
lL ls slmply one of Lhe regulaLory and conLrol
mechanlsms scaLLered LhroughouL Lhe uLC8LL 1he express purpose of Lhe uLC8LL
Lo lnclude LaxaLlon of Lhe vldeo lndusLry ln order Lo regulaLe and raLlonallze Lhe
hereLofore unconLrolled dlsLrlbuLlon of vldeograms ls evldenL from reambles 2 and
3 sopto 1hose preambles explaln Lhe moLlves of Lhe lawmaker ln presenLlng Lhe
measure 1he LlLle of Lhe uLC8LL whlch ls Lhe creaLlon of Lhe vldeogram
8egulaLory 8oard ls comprehenslve enough Lo lnclude Lhe purposes expressed ln
lLs reamble and reasonably covers all lLs provlslons lL ls unnecessary Lo express all
Lhose ob[ecLlves ln Lhe LlLle or LhaL Lhe laLLer be an lndex Lo Lhe body of Lhe uLC8LL
7

2 eLlLloner also submlLs LhaL Lhe LhlrLy percenL (30) Lax lmposed ls harsh and
oppresslve conflscaLory and ln resLralnL of Lrade Powever lL ls beyond serlous
quesLlon LhaL a Lax does noL cease Lo be valld merely because lL regulaLes
dlscourages or even deflnlLely deLers Lhe acLlvlLles Laxed
8
1he power Lo lmpose
Laxes ls one so unllmlLed ln force and so searchlng ln exLenL LhaL Lhe courLs scarcely
venLure Lo declare LhaL lL ls sub[ecL Lo any resLrlcLlons whaLever excepL such as resL
ln Lhe dlscreLlon of Lhe auLhorlLy whlch exerclses lL
9
ln lmposlng a Lax Lhe
leglslaLure acLs upon lLs consLlLuenLs 1hls ls ln general a sufflclenL securlLy agalnsL
erroneous and oppresslve LaxaLlon 10
1he Lax lmposed by Lhe uLC8LL ls noL only a regulaLory buL also a revenue measure
prompLed by Lhe reallzaLlon LhaL earnlngs of vldeogram esLabllshmenLs of around
600 mllllon per annum have noL been sub[ecLed Lo Lax Lhereby deprlvlng Lhe
CovernmenL of an addlLlonal source of revenue lL ls an enduser Lax lmposed on
reLallers for every vldeogram Lhey make avallable for publlc vlewlng lL ls slmllar Lo
Lhe 30 amusemenL Lax lmposed or borne by Lhe movle lndusLry whlch Lhe LheaLer
owners pay Lo Lhe governmenL buL whlch ls passed on Lo Lhe enLlre cosL of Lhe
admlsslon LlckeL Lhus shlfLlng Lhe Lax burden on Lhe buylng or Lhe vlewlng publlc lL
ls a Lax LhaL ls lmposed unlformly on all vldeogram operaLors
1he levy of Lhe 30 Lax ls for a publlc purpose lL was lmposed prlmarlly Lo answer
Lhe need for regulaLlng Lhe vldeo lndusLry parLlcularly because of Lhe rampanL fllm
plracy Lhe flagranL vlolaLlon of lnLellecLual properLy rlghLs and Lhe prollferaLlon of
pornographlc vldeo Lapes And whlle lL was also an ob[ecLlve of Lhe uLC8LL Lo
proLecL Lhe movle lndusLry Lhe Lax remalns a valld lmposlLlon
1he publlc purpose of a Lax may legally exlsL even lf Lhe moLlve whlch lmpelled Lhe
leglslaLure Lo lmpose Lhe Lax was Lo favor one lndusLry over anoLher 11
lL ls lnherenL ln Lhe power Lo Lax LhaL a sLaLe be free Lo selecL Lhe sub[ecLs of
LaxaLlon and lL has been repeaLedly held LhaL lnequlLles whlch resulL from a
slngllng ouL of one parLlcular class for LaxaLlon or exempLlon lnfrlnge no
consLlLuLlonal llmlLaLlon 12 1axaLlon has been made Lhe lmplemenL of Lhe sLaLes
pollce power 13
AL boLLom Lhe raLe of Lax ls a maLLer beLLer addressed Lo Lhe Laxlng leglslaLure
3 eLlLloner argues LhaL Lhere was no legal nor facLual basls for Lhe promulgaLlon of
Lhe uLC8LL by Lhe former resldenL under AmendmenL no 6 of Lhe 1973
ConsLlLuLlon provldlng LhaL whenever ln Lhe [udgmenL of Lhe resldenL Lhere
exlsLs a grave emergency or a LhreaL or lmmlnence Lhereof or whenever Lhe
lnLerlm 8aLasang ambansa or Lhe regular naLlonal Assembly falls or ls unable Lo
acL adequaLely on any maLLer for any reason LhaL ln hls [udgmenL requlres
lmmedlaLe acLlon he may ln order Lo meeL Lhe exlgency lssue Lhe necessary
decrees orders or leLLers of lnsLrucLlons whlch shall form parL of Lhe law of Lhe
land
ln refuLaLlon Lhe lnLervenors and Lhe SollclLor Cenerals Cfflce aver LhaL Lhe 8Lh
whereas clause sufflclenLly summarlzes Lhe [usLlflcaLlon ln LhaL grave emergencles
corrodlng Lhe moral values of Lhe people and beLraylng Lhe naLlonal economlc
recovery program necesslLaLed bold emergency measures Lo be adopLed wlLh
dlspaLch WhaLever Lhe reasons ln Lhe [udgmenL of Lhe Lhen resldenL
conslderlng LhaL Lhe lssue of Lhe valldlLy of Lhe exerclse of leglslaLlve power under
Lhe sald AmendmenL sLlll pends resoluLlon ln several oLher cases we reserve
resoluLlon of Lhe quesLlon ralsed aL Lhe proper Llme
4 nelLher can lL be successfully argued LhaL Lhe uLC8LL conLalns an undue
delegaLlon of leglslaLlve power 1he granL ln SecLlon 11 of Lhe uLC8LL of auLhorlLy
Lo Lhe 8CA8u Lo sollclL Lhe dlrecL asslsLance of oLher agencles and unlLs of Lhe
governmenL and depuLlze for a flxed and llmlLed perlod Lhe heads or personnel of
such agencles and unlLs Lo perform enforcemenL funcLlons for Lhe 8oard ls noL a
delegaLlon of Lhe power Lo leglslaLe buL merely a confermenL of auLhorlLy or
dlscreLlon as Lo lLs execuLlon enforcemenL and lmplemenLaLlon 1he Lrue
dlsLlncLlon ls beLween Lhe delegaLlon of power Lo make Lhe law whlch necessarlly
lnvolves a dlscreLlon as Lo whaL lL shall be and conferrlng auLhorlLy or dlscreLlon as
Lo lLs execuLlon Lo be exerclsed under and ln pursuance of Lhe law 1he flrsL cannoL
be done Lo Lhe laLLer no valld ob[ecLlon can be made 14 8esldes ln Lhe very
language of Lhe decree Lhe auLhorlLy of Lhe 8CA8u Lo sollclL such asslsLance ls for a
flxed and llmlLed perlod wlLh Lhe depuLlzed agencles concerned belng sub[ecL Lo
Lhe dlrecLlon and conLrol of Lhe 8CA8u 1haL Lhe granL of such auLhorlLy mlghL be
Lhe source of grafL and corrupLlon would noL sLlgmaLlze Lhe uLC8LL as
217

unconsLlLuLlonal Should Lhe evenLuallLy occur Lhe aggrleved parLles wlll noL be
wlLhouL adequaLe remedy ln law
3 1he uLC8LL ls noL vlolaLlve of Lhe ex post focto prlnclple An ex post focto law ls
among oLher caLegorles one whlch alLers Lhe legal rules of evldence and
auLhorlzes convlcLlon upon less or dlfferenL LesLlmony Lhan Lhe law requlred aL Lhe
Llme of Lhe commlsslon of Lhe offense lL ls peLlLloners poslLlon LhaL SecLlon 13 of
Lhe uLC8LL ln provldlng LhaL
All vldeogram esLabllshmenLs ln Lhe hlllpplnes are hereby glven a perlod of forLy
flve (43) days afLer Lhe effecLlvlLy of Lhls uecree wlLhln whlch Lo reglsLer wlLh and
secure a permlL from Lhe 8CA8u Lo engage ln Lhe vldeogram buslness and Lo
reglsLer wlLh Lhe 8CA8u all Lhelr lnvenLorles of vldeograms lncludlng vldeoLapes
dlscs casseLLes or oLher Lechnlcal lmprovemenLs or varlaLlons Lhereof before Lhey
could be sold leased or oLherwlse dlsposed of 1hereafLer any vldeogram found ln
Lhe possesslon of any person engaged ln Lhe vldeogram buslness wlLhouL Lhe
requlred proof of reglsLraLlon by Lhe 8CA8u shall be prlma facle evldence of
vlolaLlon of Lhe uecree wheLher Lhe possesslon of such vldeogram be for prlvaLe
showlng and/or publlc exhlblLlon
ralses lmmedlaLely a ptlmo focle evldence of vlolaLlon of Lhe uLC8LL when Lhe
requlred proof of reglsLraLlon of any vldeogram cannoL be presenLed and Lhus
parLakes of Lhe naLure of an ex post focto law
1he argumenL ls unLenable As Lhls CourL held ln Lhe recenL case of vollotto vs
coott of Appeols et ol 13
lL ls now well seLLled LhaL Lhere ls no consLlLuLlonal ob[ecLlon Lo Lhe passage of a
law provldlng LhaL Lhe presumpLlon of lnnocence may be overcome by a conLrary
presumpLlon founded upon Lhe experlence of human conducL and enacLlng whaL
evldence shall be sufflclenL Lo overcome such presumpLlon of lnnocence (eople
vs Mlngoa 92 hll 836 1933 aL 83839 clLlng 1 CCCLL? A 18LA1lSL Cn 1PL
CCnS1l1u1lCnAL LlMl1A1lCnS 639641) And Lhe leglslaLure may enacL LhaL
when cerLaln facLs have been proved LhaL Lhey shall be prlma facle evldence of Lhe
exlsLence of Lhe gullL of Lhe accused and shlfL Lhe burden of proof provlded Lhere
be a raLlonal connecLlon beLween Lhe facLs proved and Lhe ulLlmaLe facLs presumed
so LhaL Lhe lnference of Lhe one from proof of Lhe oLhers ls noL unreasonable and
arblLrary because of lack of connecLlon beLween Lhe Lwo ln common experlence
16
Applled Lo Lhe challenged provlslon Lhere ls no quesLlon LhaL Lhere ls a raLlonal
connecLlon beLween Lhe facL proved whlch ls nonreglsLraLlon and Lhe ulLlmaLe
facL presumed whlch ls vlolaLlon of Lhe uLC8LL besldes Lhe facL LhaL Lhe ptlmo
focle presumpLlon of vlolaLlon of Lhe uLC8LL aLLaches only afLer a forLyflveday
perlod counLed from lLs effecLlvlLy and ls Lherefore nelLher reLrospecLlve ln
characLer
6 We do noL share peLlLloners fears LhaL Lhe vldeo lndusLry ls belng overregulaLed
and belng eased ouL of exlsLence as lf lL were a nulsance 8elng a relaLlvely new
lndusLry Lhe need for lLs regulaLlon was apparenL Whlle Lhe underlylng ob[ecLlve of
Lhe uLC8LL ls Lo proLecL Lhe morlbund movle lndusLry Lhere ls no quesLlon LhaL
publlc welfare ls aL boLLom of lLs enacLmenL conslderlng Lhe unfalr compeLlLlon
posed by rampanL fllm plracy Lhe eroslon of Lhe moral flber of Lhe vlewlng publlc
broughL abouL by Lhe avallablllLy of unclasslfled and unrevlewed vldeo Lapes
conLalnlng pornographlc fllms and fllms wlLh bruLally vlolenL sequences and losses
ln governmenL revenues due Lo Lhe drop ln LheaLrlcal aLLendance noL Lo menLlon
Lhe facL LhaL Lhe acLlvlLles of vldeo esLabllshmenLs are vlrLually unLaxed slnce mere
paymenL of Mayors permlL and munlclpal llcense fees are requlred Lo engage ln
buslness 17
1he enacLmenL of Lhe uecree slnce Aprll 10 1986 has noL broughL abouL Lhe
demlse of Lhe vldeo lndusLry Cn Lhe conLrary vldeo esLabllshmenLs are seen Lo
have prollferaLed ln many places noLwlLhsLandlng Lhe 30 Lax lmposed
ln Lhe lasL analysls whaL peLlLloner baslcally quesLlons ls Lhe necesslLy wlsdom and
expedlency of Lhe uLC8LL 1hese conslderaLlons however are prlmarlly and
excluslvely a maLLer of leglslaLlve concern
Cnly congresslonal power or compeLence noL Lhe wlsdom of Lhe acLlon Laken may
be Lhe basls for declarlng a sLaLuLe lnvalld 1hls ls as lL oughL Lo be 1he prlnclple of
separaLlon of powers has ln Lhe maln wlsely allocaLed Lhe respecLlve auLhorlLy of
each deparLmenL and conflned lLs [urlsdlcLlon Lo such a sphere 1here would Lhen
be lnLruslon noL allowable under Lhe ConsLlLuLlon lf on a maLLer lefL Lo Lhe
dlscreLlon of a coordlnaLe branch Lhe [udlclary would subsLlLuLe lLs own lf Lhere be
adherence Lo Lhe rule of law as Lhere oughL Lo be Lhe lasL offender should be
courLs of [usLlce Lo whlch rlghLly llLlganLs submlL Lhelr conLroversy preclsely Lo
malnLaln unlmpalred Lhe supremacy of legal norms and prescrlpLlons 1he aLLack on
Lhe valldlLy of Lhe challenged provlslon llkewlse lnsofar as Lhere may be ob[ecLlons
even lf valld and cogenL on lLs wlsdom cannoL be susLalned 18
ln flne peLlLloner has noL overcome Lhe presumpLlon of valldlLy whlch aLLaches Lo a
challenged sLaLuLe We flnd no clear vlolaLlon of Lhe ConsLlLuLlon whlch would
[usLlfy us ln pronounclng resldenLlal uecree no 1987 as unconsLlLuLlonal and vold
WPL8LlC8L Lhe lnsLanL eLlLlon ls hereby dlsmlssed
no cosLs

Gk No L78S9 December 22 19SS
JAL1Lk LU12 VS AkANL1A

8L?LS !8 L I
1hls case was lnlLlaLed ln Lhe CourL of llrsL lnsLance of negros CccldenLal Lo LesL Lhe
legallLy of Lhe Laxes lmposed by CommonwealLh AcL no 367 oLherwlse known as
Lhe Sugar Ad[usLmenL AcL
romulgaLed ln 1940 Lhe law ln quesLlon opens (secLlon 1) wlLh a declaraLlon of
emergency due Lo Lhe LhreaL Lo our lndusLry by Lhe lmmlnenL lmposlLlon of exporL
218

Laxes upon sugar as provlded ln Lhe 1ydlngsMcuuffe AcL and Lhe evenLual loss of
lLs preferenLlal poslLlon ln Lhe unlLed SLaLes markeL wherefore Lhe naLlonal pollcy
was expressed Lo obLaln a read[usLmenL of Lhe beneflLs derlved from Lhe sugar
lndusLry by Lhe componenL elemenLs Lhereof and Lo sLablllze Lhe sugar lndusLry
so as Lo prepare lL for Lhe evenLuallLy of Lhe loss of lLs preferenLlal poslLlon ln Lhe
unlLed SLaLes markeL and Lhe lmposlLlon of Lhe exporL Laxes
ln secLlon 2 CommonwealLh AcL 367 provldes for an lncrease of Lhe exlsLlng Lax on
Lhe manufacLure of sugar on a graduaLed basls on each plcul of sugar
manufacLured whlle secLlon 3 levles on owners or persons ln conLrol of lands
devoLed Lo Lhe culLlvaLlon of sugar cane and ceded Lo oLhers for a conslderaLlon on
lease or oLherwlse
a Lax equlvalenL Lo Lhe dlfference beLween Lhe money value of Lhe renLal or
conslderaLlon collecLed and Lhe amounL represenLlng 12 per cenLum of Lhe
assessed value of such land
Accordlng Lo secLlon 6 of Lhe law
SLC 6 All collecLlons made under Lhls AcL shall accrue Lo a speclal fund ln Lhe
hlllpplne 1reasury Lo be known as Lhe Sugar Ad[usLmenL and SLablllzaLlon lund
and shall be pald ouL only for any or all of Lhe followlng purposes or Lo aLLaln any or
all of Lhe followlng ob[ecLlves as may be provlded by law
llrsL Lo place Lhe sugar lndusLry ln a poslLlon Lo malnLaln lLself desplLe Lhe gradual
loss of Lhe prefernLlal poslLlon of Lhe hlllpplne sugar ln Lhe unlLed SLaLes markeL
and ulLlmaLely Lo lnsure lLs conLlnued exlsLence noLwlLhsLandlng Lhe loss of LhaL
markeL and Lhe consequenL necesslLy of meeLlng compeLlLlon ln Lhe free markeLs of
Lhe world
Second Lo read[usL Lhe beneflLs derlved from Lhe sugar lndusLry by all of Lhe
componenL elemenLs Lhereof Lhe mlll Lhe landowner Lhe planLer of Lhe sugar
cane and Lhe laborers ln Lhe facLory and ln Lhe fleld so LhaL all mlghL conLlnue
proflLably Lo engage Lherelnlawphl1neL
1hlrd Lo llmlL Lhe producLlon of sugar Lo areas more economlcally sulLed Lo Lhe
producLlon Lhereof and
lourLh Lo afford labor employed ln Lhe lndusLry a llvlng wage and Lo lmprove Lhelr
llvlng and worklng condlLlons rovlded 1haL Lhe resldenL of Lhe hlllpplnes may
unLll Lhe ad[ourmenL of Lhe nexL regular sesslon of Lhe naLlonal Assembly make Lhe
necessary dlsbursemenLs from Lhe fund hereln creaLed (1) for Lhe esLabllshmenL
and operaLlon of sugar experlmenL sLaLlon or sLaLlons and Lhe underLaklng of
researchers (a) Lo lncrease Lhe recoverles of Lhe cenLrlfugal sugar facLorles wlLh Lhe
vlew of reduclng manufacLurlng cosLs (b) Lo produce and propagaLe hlgher yleldlng
varleLles of sugar cane more adapLable Lo dlfferenL dlsLrlcL condlLlons ln Lhe
hlllpplnes (c) Lo lower Lhe cosLs of ralslng sugar cane (d) Lo lmprove Lhe buylng
quallLy of denaLured alcohol from molasses for moLor fuel (e) Lo deLermlne Lhe
posslblllLy of uLlllzlng Lhe oLher byproducLs of Lhe lndusLry (f) Lo deLermlne whaL
crop or crops are sulLable for roLaLlon and for Lhe uLlllzaLlon of excess cane lands
and (g) on oLher problems Lhe soluLlon of whlch would help rehablllLaLe and
sLablllze Lhe lndusLry and (2) for Lhe lmprovemenL of llvlng and worklng condlLlons
ln sugar mllls and sugar planLaLlons auLhorlzlng hlm Lo organlze Lhe necessary
agency or agencles Lo Lake charge of Lhe expendlLure and allocaLlon of sald funds Lo
carry ouL Lhe purpose herelnbefore enumeraLed and llkewlse auLhorlzlng Lhe
dlsbursemenL from Lhe fund hereln creaLed of Lhe necessary amounL or amounLs
needed for salarles wages Lravelllng expenses equlpmenL and oLher sundry
expenses of sald agency or agencles
lalnLlff WalLer LuLz ln hls capaclLy as !udlclal AdmlnlsLraLor of Lhe lnLesLaLe LsLaLe
of AnLonlo !ayme Ledesma seeks Lo recover from Lhe CollecLor of lnLernal 8evenue
Lhe sum of 1466640 pald by Lhe esLaLe as Laxes under secLlon 3 of Lhe AcL for
Lhe crop years 19481949 and 19491930 alleglng LhaL such Lax ls unconsLlLuLlonal
and vold belng levled for Lhe ald and supporL of Lhe sugar lndusLry excluslvely
whlch ln plalnLlffs oplnlon ls noL a publlc purpose for whlch a Lax may be
consLlLuLloally levled 1he acLlon havlng been dlsmlssed by Lhe CourL of llrsL
lnsLance Lhe plalnLlfs appealed Lhe case dlrecLly Lo Lhls CourL (!udlclary AcL secLlon
17)
1he baslc defecL ln Lhe plalnLlffs poslLlon ls hls assumpLlon LhaL Lhe Lax provlded for
ln CommonwealLh AcL no 367 ls a pure exerclse of Lhe Laxlng power Analysls of
Lhe AcL and parLlcularly of secLlon 6 (hereLofore quoLed ln full) wlll show LhaL Lhe
Lax ls levled wlLh a regulaLory purpose Lo provlde means for Lhe rehablllLaLlon and
sLablllzaLlon of Lhe LhreaLened sugar lndusLry ln oLher words Lhe acL ls prlmarlly an
exerclse of Lhe pollce power
1hls CourL can Lake [udlclal noLlce of Lhe facL LhaL sugar producLlon ls one of Lhe
greaL lndusLrles of our naLlon sugar occupylng a leadlng poslLlon among lLs exporL
producLs LhaL lL glves employmenL Lo Lhousands of laborers ln flelds and facLorles
LhaL lL ls a greaL source of Lhe sLaLes wealLh ls one of Lhe lmporLanL sources of
forelgn exchange needed by our governmenL and ls Lhus plvoLal ln Lhe plans of a
reglme commlLLed Lo a pollcy of currency sLablllLy lLs promoLlon proLecLlon and
advancemenL Lherefore redounds greaLly Lo Lhe general welfare Pence lL was
compeLenL for Lhe leglslaLure Lo flnd LhaL Lhe general welfare demanded LhaL Lhe
sugar lndusLry should be sLablllzed ln Lurn and ln Lhe wlde fleld of lLs pollce power
Lhe lawmaklng body could provlde LhaL Lhe dlsLrlbuLlon of beneflLs Lherefrom be
read[usLed among lLs componenLs Lo enable lL Lo reslsL Lhe added sLraln of Lhe
lncrease ln Laxes LhaL lL had Lo susLaln (Sllgh vs klrkwood 237 u S 32 39 L Ld
833 !ohnson vs SLaLe ex rel Marey 99 lla 1311 128 So 833 Maxcy lnc vs Mayo
103 lla 332 139 So 121)
As sLaLed ln !ohnson vs SLaLe ex rel Marey wlLh reference Lo Lhe clLrus lndusLry ln
llorlda
1he proLecLlon of a large lndusLry consLlLuLlng one of Lhe greaL sources of Lhe
sLaLes wealLh and Lherefore dlrecLly or lndlrecLly affecLlng Lhe welfare of so greaL a
219

porLlon of Lhe populaLlon of Lhe SLaLe ls affecLed Lo such an exLenL by publlc
lnLeresLs as Lo be wlLhln Lhe pollce power of Lhe soverelgn (128 Sp 837)
Cnce lL ls conceded as lL musL LhaL Lhe proLecLlon and promoLlon of Lhe sugar
lndusLry ls a maLLer of publlc concern lL follows LhaL Lhe LeglslaLure may deLermlne
wlLhln reasonable bounds whaL ls necessary for lLs proLecLlon and expedlenL for lLs
promoLlon Pere Lhe leglslaLlve dlscreLlon musL be allowed fully play sub[ecL only
Lo Lhe LesL of reasonableness and lL ls noL conLended LhaL Lhe means provlded ln
secLlon 6 of Lhe law (above quoLed) bear no relaLlon Lo Lhe ob[ecLlve pursued or are
oppresslve ln characLer lf ob[ecLlve and meLhods are allke consLlLuLlonally valld no
reason ls seen why Lhe sLaLe may noL levy Laxes Lo ralse funds for Lhelr prosecuLlon
and aLLalnmenL 1axaLlon may be made Lhe lmplemenL of Lhe sLaLes pollce power
(CreaL ALl ac 1ea Co vs Cros[ean 301 u S 412 81 L Ld 1193 u S vs 8uLler
297 u S 1 80 L Ld 477 MCulloch vs Maryland 4 WheaL 316 4 L Ld 379)
1haL Lhe Lax Lo be levled should burden Lhe sugar producers Lhemselves can hardly
be a ground of complalnL lndeed lL appears raLlonal LhaL Lhe Lax be obLalned
preclsely from Lhose who are Lo be beneflLed from Lhe expendlLure of Lhe funds
derlved from lL AL any raLe lL ls lnherenL ln Lhe power Lo Lax LhaL a sLaLe be free Lo
selecL Lhe sub[ecLs of LaxaLlon and lL has been repeaLedly held LhaL lnequallLles
whlch resulL from a slngllng ouL of one parLlcular class for LaxaLlon or exempLlon
lnfrlnge no consLlLuLlonal llmlLaLlon (Carmlchael vs SouLhern Coal Coke Co 301
u S 493 81 L Ld 1243 clLlng numerous auLhorlLles aL p 1231)
lrom Lhe polnL of vlew we have Laken lL appears of no momenL LhaL Lhe funds
ralsed under Lhe Sugar SLablllzaLlon AcL now ln quesLlon should be excluslvely
spenL ln ald of Lhe sugar lndusLry slnce lL ls LhaL very enLerprlse LhaL ls belng
proLecLed lL may be LhaL oLher lndusLrles are also ln need of slmllar proLecLlon LhaL
Lhe leglslaLure ls noL requlred by Lhe ConsLlLuLlon Lo adhere Lo a pollcy of all or
none As ruled ln MlnnesoLa ex rel earson vs robaLe CourL 309 u S 270 84 L
Ld 744 lf Lhe law presumably hlLs Lhe evll where lL ls mosL felL lL ls noL Lo be
overLhrown because Lhere are oLher lnsLances Lo whlch lL mlghL have been
applled and LhaL Lhe leglslaLlve auLhorlLy exerLed wlLhln lLs proper fleld need
noL embrace all Lhe evlls wlLhln lLs reach (n L 8 8 vs !ones Laughlln SLeel
Corp 301 u S 1 81 L Ld 893)
Lven from Lhe sLandpolnL LhaL Lhe AcL ls a pure Lax measure lL cannoL be sald LhaL
Lhe devoLlon of Lax money Lo experlmenLal sLaLlons Lo seek lncrease of efflclency ln
sugar producLlon uLlllzaLlon of byproducLs and soluLlon of allled problems as well
as Lo Lhe lmprovemenLs of llvlng and worklng condlLlons ln sugar mllls or
planLaLlons wlLhouL any parL of such money belng channeled dlrecLly Lo prlvaLe
persons consLlLuLes expendlLure of Lax money for prlvaLe purposes (compare
Lverson vs 8oard of LducaLlon 91 L Ld 472 168 AL8 1392 1400)
1he declslon appealed from ls afflrmed wlLh cosLs agalnsL appellanL So ordered
lotos c I 8eoqzoo loJlllo keyes A Ioq

Gk No 89S72 December 21 1989
DL9Ak1MLN1 CI LDUCA1ICN CUL1UkL AND S9Ck1S %DLCS) VS SAN DILGC

CkU2 I
1he lssue before us ls medlocrlLy 1he quesLlon ls wheLher a person who has Lhrlce
falled Lhe naLlonal Medlcal Admlsslon 1esL (nMA1) ls enLlLled Lo Lake lL agaln
1he peLlLloner conLends he may noL under lLs rule LhaL
h) A sLudenL shall be allowed only Lhree (3) chances Lo Lake Lhe nMA1 AfLer Lhree
(3) successlve fallures a sLudenL shall noL be allowed Lo Lake Lhe nMA1 for Lhe
fourLh Llme
1he prlvaLe respondenL lnslsLs he can on consLlLuLlonal grounds
8uL flrsL Lhe facLs
1he prlvaLe respondenL ls a graduaLe of Lhe unlverslLy of Lhe LasL wlLh a degree of
8achelor of Sclence ln Zoology 1he peLlLloner clalms LhaL he Look Lhe nMA1 Lhree
Llmes and flunked lL as many Llmes
1
When he applled Lo Lake lL agaln Lhe
peLlLloner re[ecLed hls appllcaLlon on Lhe basls of Lhe aforesald rule Pe Lhen wenL
Lo Lhe 8eglonal 1rlal CourL of valenzuela MeLro Manlla Lo compel hls admlsslon Lo
Lhe LesL
ln hls orlglnal peLlLlon for mandamus he flrsL lnvoked hls consLlLuLlonal rlghLs Lo
academlc freedom and quallLy educaLlon 8y agreemenL of Lhe parLles Lhe prlvaLe
respondenL was allowed Lo Lake Lhe nMA1 scheduled on Aprll 16 1989 sub[ecL Lo
Lhe ouLcome of hls peLlLlon
2
ln an amended peLlLlon flled wlLh leave of courL he
squarely challenged Lhe consLlLuLlonallLy of MLCS Crder no 12 Serles of 1972
conLalnlng Lhe aboveclLed rule 1he addlLlonal grounds ralsed were due process
and equal proLecLlon
AfLer hearlng Lhe respondenL [udge rendered a declslon on !uly 4 1989 declarlng
Lhe challenged order lnvalld and granLlng Lhe peLlLlon !udge 1ereslLa ulzon
Capulong held LhaL Lhe peLlLloner had been deprlved of hls rlghL Lo pursue a
medlcal educaLlon Lhrough an arblLrary exerclse of Lhe pollce power
3

We cannoL susLaln Lhe respondenL [udge Per declslon musL be reversed
ln 1ablarln v CuLlerrez
4
Lhls CourL upheld Lhe consLlLuLlonallLy of Lhe nMA1 as a
measure lnLended Lo llmlL Lhe admlsslon Lo medlcal schools only Lo Lhose who have
lnlLlally proved Lhelr compeLence and preparaLlon for a medlcal educaLlon !usLlce
llorenLlno lellclano declared for a unanlmous CourL
erhaps Lhe only lssue LhaL needs some conslderaLlon ls wheLher Lhere ls some
reasonable relaLlon beLween Lhe prescrlblng of passlng Lhe nMA1 as a condlLlon for
admlsslon Lo medlcal school on Lhe one hand and Lhe securlng of Lhe healLh and
safeLy of Lhe general communlLy on Lhe oLher hand 1hls quesLlon ls perhaps mosL
usefully approached by recalllng LhaL Lhe regulaLlon of Lhe praLlce of medlclne ln all
lLs branches has long been recognlzed as a reasonable meLhod of proLecLlng Lhe
healLh and safeLy of Lhe publlc 1haL Lhe power Lo regulaLe and conLrol Lhe pracLlce
of medlclne lncludes Lhe power Lo regulaLe admlsslon Lo Lhe ranks of Lhose
220

auLhorlzed Lo pracLlce medlclne ls also well recognlzed 1hus leglslaLlon and
admlnlsLraLlve regulaLlons requlrlng Lhose who wlsh Lo pracLlce medlclne flrsL Lo
Lake and pass medlcal board examlnaLlons have long ago been recognlzed as valld
exerclses of governmenLal power Slmllarly Lhe esLabllshmenL of mlnlmum medlcal
educaLlonal requlremenLsle Lhe compleLlon of prescrlbed courses ln a recognlzed
medlcal schoolfor admlsslon Lo Lhe medlcal professlon has also been susLalned as
a leglLlmaLe exerclse of Lhe regulaLory auLhorlLy of Lhe sLaLe WhaL we have before
us ln Lhe lnsLanL case ls closely relaLed Lhe regulaLlon of access Lo medlcal schools
MLCS Crder no 32 s 1983 as noLed earller arLlculaLes Lhe raLlonale of regulaLlon
of Lhls Lype Lhe lmprovemenL of Lhe professlonal and Lechnlcal quallLy of Lhe
graduaLes of medlcal schools by upgradlng Lhe quallLy of Lhose admlLLed Lo Lhe
sLudenL body of Lhe medlcal schools 1haL upgradlng ls soughL by selecLlvlLy ln Lhe
process of admlsslon selecLlvlLy conslsLlng among oLher Lhlngs of llmlLlng
admlsslon Lo Lhose who exhlblL ln Lhe requlred degree Lhe apLlLude for medlcal
sLudles and evenLually for medlcal pracLlce 1he need Lo malnLaln and Lhe
dlfflculLles of malnLalnlng hlgh sLandards ln our professlonal schools ln general and
medlcal schools ln parLlcular ln Lhe currenL sLaLe of our soclal and economlc
developmenL are wldely known
We belleve LhaL Lhe governmenL ls enLlLled Lo prescrlbe an admlsslon LesL llke Lhe
nMA1 as a means of achlevlng lLs sLaLed ob[ecLlve of upgradlng Lhe selecLlon of
appllcanLs lnLo our medlcal schools and of lmprovlng Lhe quallLy of medlcal
educaLlon ln Lhe counLry Clven Lhe wldespread use Loday of such admlsslon LesLs
ln for lnsLance medlcal schools ln Lhe unlLed SLaLes of Amerlca (Lhe Medlcal
College Admlsslon 1esL MCA1 and qulLe probably ln oLher counLrles wlLh far more
developed educaLlonal resources Lhan our own and Laklng lnLo accounL Lhe fallure
or lnablllLy of Lhe peLlLloners Lo even aLLempL Lo prove oLherwlse we are enLlLled Lo
hold LhaL Lhe nMA1 ls reasonably relaLed Lo Lhe securlng of Lhe ulLlmaLe end of
leglslaLlon and regulaLlon ln Lhls area 1haL end lL ls useful Lo recall ls Lhe
proLecLlon of Lhe publlc from Lhe poLenLlally deadly effecLs of lncompeLence and
lgnorance ln Lhose who would underLake Lo LreaL our bodles and mlnds for dlsease
or Lrauma
Powever Lhe respondenL [udge agreed wlLh Lhe peLlLloner LhaL Lhe sald case was
noL appllcable Per reason was LhaL lL upheld only Lhe requlremenL for Lhe
admlsslon LesL and sald noLhlng abouL Lhe socalled Lhreeflunk rule
We see no reason why Lhe raLlonale ln Lhe 1ablarln case cannoL apply Lo Lhe case aL
bar 1he lssue ralsed ln boLh cases ls Lhe academlc preparaLlon of Lhe appllcanL 1hls
may be gauged aL leasL lnlLlally by Lhe admlsslon LesL and lndeed wlLh more
rellablllLy by Lhe Lhreeflunk rule 1he laLLer cannoL be regarded any less valld Lhan
Lhe former ln Lhe regulaLlon of Lhe medlcal professlon
1here ls no need Lo redeflne here Lhe pollce power of Lhe SLaLe Sufflce lL Lo repeaL
LhaL Lhe power ls valldly exerclsed lf (a) Lhe lnLeresLs of Lhe publlc generally as
dlsLlngulshed from Lhose of a parLlcular class requlre Lhe lnLerference of Lhe SLaLe
and (b) Lhe means employed are reasonably necessary Lo Lhe aLLalnmenL of Lhe
ob[ecL soughL Lo be accompllshed and noL unduly oppresslve upon lndlvlduals
S

ln oLher words Lhe proper exerclse of Lhe pollce power requlres Lhe concurrence of
a lawful sub[ecL and a lawful meLhod
1he sub[ecL of Lhe challenged regulaLlon ls cerLalnly wlLhln Lhe amblL of Lhe pollce
power lL ls Lhe rlghL and lndeed Lhe responslblllLy of Lhe SLaLe Lo lnsure LhaL Lhe
medlcal professlon ls noL lnfllLraLed by lncompeLenLs Lo whom paLlenLs may
unwarlly enLrusL Lhelr llves and healLh
1he meLhod employed by Lhe challenged regulaLlon ls noL lrrelevanL Lo Lhe purpose
of Lhe law nor ls lL arblLrary or oppresslve 1he Lhreeflunk rule ls lnLended Lo
lnsulaLe Lhe medlcal schools and ulLlmaLely Lhe medlcal professlon from Lhe
lnLruslon of Lhose noL quallfled Lo be docLors
Whlle every person ls enLlLled Lo asplre Lo be a docLor he does noL have a
consLlLuLlonal rlghL Lo be a docLor 1hls ls Lrue of any oLher calllng ln whlch Lhe
publlc lnLeresL ls lnvolved and Lhe closer Lhe llnk Lhe longer Lhe brldge Lo ones
amblLlon 1he SLaLe has Lhe responslblllLy Lo harness lLs human resources and Lo
see Lo lL LhaL Lhey are noL dlsslpaLed or no less worse noL used aL all 1hese
resources musL be applled ln a manner LhaL wlll besL promoLe Lhe common good
whlle also glvlng Lhe lndlvldual a sense of saLlsfacLlon
A person cannoL lnslsL on belng a physlclan lf he wlll be a menace Lo hls paLlenLs lf
one who wanLs Lo be a lawyer may prove beLLer as a plumber he should be so
advlsed and advlced Cf course he may noL be forced Lo be a plumber buL on Lhe
oLher hand he may noL force hls enLry lnLo Lhe bar 8y Lhe same Loken a sLudenL
who has demonsLraLed promlse as a planlsL cannoL be shunLed aslde Lo Lake a
course ln nurslng however approprlaLe Lhls career may be for oLhers
1he rlghL Lo quallLy educaLlon lnvoked by Lhe prlvaLe respondenL ls noL absoluLe
1he ConsLlLuLlon also provldes LhaL every clLlzen has Lhe rlghL Lo choose a
professlon or course of sLudy sub[ecL Lo falr reasonable and equlLable admlsslon
and academlc requlremenLs
6

1he prlvaLe respondenL musL yleld Lo Lhe challenged rule and glve way Lo Lhose
beLLer prepared Where even Lhose who have quallfled may sLlll noL be
accommodaLed ln our already crowded medlcal schools Lhere ls all Lhe more
reason Lo bar Lhose who llke hlm have been LesLed and found wanLlng
1he conLenLlon LhaL Lhe challenged rule vlolaLes Lhe equal proLecLlon clause ls noL
wellLaken A law does noL have Lo operaLe wlLh equal force on all persons or Lhlngs
Lo be conformable Lo ArLlcle lll SecLlon 1 of Lhe ConsLlLuLlon
1here can be no quesLlon LhaL a subsLanLlal dlsLlncLlon exlsLs beLween medlcal
sLudenLs and oLher sLudenLs who are noL sub[ecLed Lo Lhe nMA1 and Lhe Lhree
flunk rule 1he medlcal professlon dlrecLly affecLs Lhe very llves of Lhe people unllke
oLher careers whlch for Lhls reason do noL requlre more vlgllanL regulaLlon 1he
accounLanL for example whlle belonglng Lo an equally respecLable professlon does
221

noL hold Lhe same dellcaLe responslblllLy as LhaL of Lhe physlclan and so need noL be
slmllarly LreaLed
1here would be unequal proLecLlon lf some appllcanLs who have passed Lhe LesLs
are admlLLed and oLhers who have also quallfled are denled enLrance ln oLher
words whaL Lhe equal proLecLlon requlres ls equallLy among equals
1he CourL feels LhaL lL ls noL enough Lo slmply lnvoke Lhe rlghL Lo quallLy educaLlon
as a guaranLee of Lhe ConsLlLuLlon one musL show LhaL he ls enLlLled Lo lL because
of hls preparaLlon and promlse 1he prlvaLe respondenL has falled Lhe nMA1 flve
Llmes
7
Whlle hls perslsLence ls noLeworLhy Lo say Lhe leasL lL ls cerLalnly
mlsplaced llke a hopeless love
no depreclaLlon ls lnLended or made agalnsL Lhe prlvaLe respondenL lL ls sLressed
LhaL a person who does noL quallfy ln Lhe nMA1 ls noL an absoluLe lncompeLenL
unflL for any work or occupaLlon 1he only lnference ls LhaL he ls a probably beLLer
noL for Lhe medlcal professlon buL for anoLher calllng LhaL has noL exclLed hls
lnLeresL
ln Lhe former he may be a bungler or aL leasL lacklusLer ln Lhe laLLer he ls more
llkely Lo succeed and may even be ouLsLandlng lL ls for Lhe approprlaLe calllng LhaL
he ls enLlLled Lo quallLy educaLlon for Lhe full harnesslng of hls poLenLlals and Lhe
sharpenlng of hls laLenL LalenLs Loward whaL may even be a brllllanL fuLure
We cannoL have a socleLy of square pegs ln round holes of denLlsLs who should
never have lefL Lhe farm and englneers who should have sLudled banklng and
Leachers who could be beLLer as merchanLs
lL ls Llme lndeed LhaL Lhe SLaLe Look declslve sLeps Lo regulaLe and enrlch our
sysLem of educaLlon by dlrecLlng Lhe sLudenL Lo Lhe course for whlch he ls besL
sulLed as deLermlned by lnlLlal LesLs and evaluaLlons CLherwlse we may be
swamped wlLh medlocrlLy ln Lhe words of !usLlce Polmes noL because we are
lacklng ln lnLelllgence buL because we are a naLlon of mlsflLs
WPL8LlC8L Lhe peLlLlon ls C8An1Lu 1he declslon of Lhe respondenL courL daLed
!anuary 13 1989 ls 8LvL8SLu wlLh cosLs agalnsL Lhe prlvaLe respondenL lL ls so
ordered

Gk No 71169 August 30 1989
SANGALANG VS IAC

SA8MlLn1C I
1he lncldenL before Lhe CourL refers Lo charges for conLempL agalnsL ALLy ! Cezar
Sangco counsel for Lhe peLlLloners Spouses !ose and LuLgarda Sangalang (C8 no
71169)
Cn lebruary 2 1989 Lhe CourL lssued a 8esoluLlon requlrlng among oLher Lhlngs
ALLy Sangco Lo show cause why he should noL be punlshed for conLempL for uslng
lnLemperaLe and accusaLory language
1
Cn March 2 1989 ALLy Sangco flled an
explanaLlon
1he CourL flnds ALLy Sangcos remarks ln hls moLlon for reconslderaLlon
reproduced as follows

1hls ueclslon of Lhls CourL ln Lhe aboveenLlLled case reads more llke a 8rlef for
Ayala
2

Lhe CourL noL only puL Lo serlous quesLlon lLs own lnLegrlLy and compeLence buL
also [eopardlzed lLs own campalgn agalnsL grafL and corrupLlon undenlably
pervadlng Lhe [udlclary
3


1he blaLanL dlsregard of conLrolllng documenLed and admlLLed facLs noL puL ln
lssue such as Lhose summarlly lgnored ln Lhls case Lhe exLraordlnary efforLs
exerLed Lo [usLlfy such arblLrarlness and Lhe very sLralned and unwarranLed
concluslons drawn Lherefrom are unparalleled ln Lhe hlsLory of Lhls CourL
4


1o lgnore Lhe facL LhaL !uplLer SLreeL was orlglnally consLrucLed for Lhe excluslve
beneflL of Lhe resldenLs of 8el Alr vlllage or rule LhaL respondenL CourLs admlsslon
of sald facL ls lnaccuraLe as Ayalas Counsel hlmself would llke Lo do buL dld noL
even conLend ls a manlfesLaLlon of Lhls CourLs unusual parLlallLy Lo Ayala and puLs
Lo serlous quesLlon lLs lnLegrlLy on LhaL accounL
3


lL ls submlLLed LhaL Lhls rullng ls Lhe mosL serlous reflecLlon on Lhe CourLs
compeLence and lnLegrlLy and exempllfles lLs manlfesL parLlallLy Lowards Ayala lL ls
a blaLanL dlsregard of documenLed and lnconLroverLlble and unconLroverLed facLual
flndlngs of Lhe Lrlal courL fully supporLed by Lhe records and Lhe Lrue slgnlflcance of
Lhose facLs whlch boLh Lhe respondenL courL and Lhls CourL dld noL boLher Lo read
and consequenLly dld noL conslder and dlscuss leasL of all ln Lhe manner lL dld wlLh
respecL Lo Lhose ln whlch lL arrlved aL concluslons favorable Lo Ayala
6

1o LoLally dlsregard Ayalas wrlLLen leLLer of appllcaLlon for speclal membershlp ln
8AvA whlch clearly sLaLe LhaL such membershlp ls necessary because lL ls a new
developmenL ln Lhelr relaLlonshlp wlLh respecL Lo lLs lnLenLlon Lo glve lLs
commerclal loL buyers an equal rlghL Lo Lhe use of !uplLer SLreeL wlLhouL glvlng any
reason Lherefor smacks of [udlclal arrogance
7


Are all Lhese unusual exerclse of such arblLrarlness above susplclon? Wlll Lhe
currenL campalgn of Lhls CourL agalnsL grafL and corrupLlon ln Lhe [udlclary be
enhanced by such broad dlscreLlonary power of courLs?
8

dlsparaglng lnLemperaLe and uncalled for Pls suggesLlons LhaL Lhe CourL mlghL
have been gullLy of grafL and corrupLlon ln acLlng on Lhese cases are noL only
unbecomlng buL comes as well as an open assaulL upon Lhe CourLs honor and
lnLegrlLy ln renderlng lLs [udgmenL Lhe CourL ylelded Lo Lhe records before lL and
Lo Lhe records alone and noL Lo ouLslde lnfluences much less Lhe lnfluence of any
of Lhe parLles ALLy Sangco as a former [udge of an lnferlor courL should know
222

beLLer LhaL ln any llLlgaLlon one parLy prevalls buL hls success wlll noL [usLlfy
lndlcLmenLs of brlbery by Lhe oLher parLy Pe should be aware LhaL because of hls
accusaLlons he has done an enormous dlsservlce Lo Lhe lnLegrlLy of Lhe hlghesL
Lrlbunal and Lo Lhe sLablllLy of Lhe admlnlsLraLlon of [usLlce ln general
As a former [udge ALLy Sangco also has Lo be aware LhaL we are noL bound by Lhe
flndlngs of Lhe Lrlal courL (ln whlch hls cllenLs prevalled)lwpbi1t 8uL lf we dld
noL agree wlLh Lhe flndlngs of Lhe courL o poo lL does noL follow LhaL we had acLed
arblLrarlly because preclsely lL ls Lhe offlce of an appeal Lo revlew Lhe flndlngs of
Lhe lnferlor courL
1o be sure ALLy Sangco ls enLlLled Lo hls oplnlon buL noL Lo a llcense Lo lnsulL Lhe
CourL wlLh derogaLory sLaLemenLs and recourses Lo otqomeoto oJ bomloem ln LhaL
evenL lL ls Lhe CourLs duLy Lo acL Lo preserve Lhe honor and dlgnlLy and Lo
safeguard Lhe morals and eLhlcs of Lhe legal professlon
9

We are noL saLlsfled wlLh hls explanaLlon LhaL he was merely defendlng Lhe
lnLeresLs of hls cllenLs As we held ln looteto a lawyers flrsL duLy ls noL Lo hls
cllenL buL Lo Lhe admlnlsLraLlon of [usLlce Lo LhaL end hls cllenLs success ls wholly
subordlnaLe and hls conducL oughL Lo and musL always be scrupulously observanL
of law and eLhlcs
10
And whlle a lawyer musL advocaLe hls cllenLs cause ln uLmosL
earnesL and wlLh Lhe maxlmum sklll he can marshal he ls noL aL llberLy Lo resorL Lo
arrogance lnLlmldaLlon and lnnuendo
1haL Lhe quesLlons propounded were noL meanL or lnLended Lo accuse buL Lo
challenge Lhe Lhlnklng ln Lhe ueclslon
11
comes as an elevenLhhour efforL Lo
cleanse whaL ls ln facL and plalnly an unfounded accusaLlon CerLalnly lL ls Lhe
prerogaLlve of an unsuccessful parLy Lo ask for reconslderaLlon buL as we held ln
looteto llLlganLs should noL Lhlnk LhaL Lhey wlll wln a hearlng by Lhe sheer
mulLlpllcaLlon of words
12
As we lndlcaLed (see ueclslon denylng Lhe moLlons for
reconslderaLlon ln C8 nos 71169 74376 76394 78182 and 82281 and decldlng
C8 no 60727 daLed AugusL 23 1989) Lhe movanLs have ralsed no new
argumenLs Lo warranL reconslderaLlon and Lhey can noL vell LhaL facL wlLh
lnflammaLory language
ALLy Sangco hlmself admlLs LhaL as a [udge l have learned Lo llve wlLh and accepL
wlLh grace crlLlclsms of my declslons
13
ApparenLly he does noL pracLlce whaL he
preaches Cf course Lhe CourL ls noL unrecepLlve Lo commenL and crlLlque of lLs
declslons buL provlded Lhey are falr and dlgnlfled ALLy Sangco has Lranscended
Lhe llmlLs of falr commenL for whlch he deserves Lhls CourLs rebuke
ln our showcause 8esoluLlon we soughL Lo hold ALLy Sangco ln conLempL
speclflcally for resorL Lo lnsulLlng language amounLlng Lo dlsrespecL Loward Lhe
CourL wlLhln Lhe meanlng of SecLlon 1 of 8ule 71 of Lhe 8ules of CourL Clearly
however hls acL also consLlLuLes malpracLlce as Lhe Lerm ls deflned by Canon 11 of
Lhe Code of rofesslonal 8esponslblllLy as follows
CAnCn 11A LAW?L8 SPALL C8SL8vL Anu MAln1Aln 1PL 8LSLC1 uuL 1C 1PL
CCu81S Anu 1C !uulClAL ClllCL8S Anu SPCuLu lnSlS1 Cn SlMlLA8 CCnuuC1 8?
C1PL8S
8ule 1101
8ule 1102
8ule 1103A lawyer shall absLaln from scandalous offenslve or menaclng language
or behavlor before Lhe CourLs
8ule 1104A lawyer should noL aLLrlbuLe Lo a !udge moLlves noL supporLed by Lhe
record or have no maLerlallLy Lo Lhe case
8ule 1103
1hus aslde from conLempL ALLy Sangco faces punlshmenL for professlonal
mlsconducL or malpracLlce
WPL8LlC8L ALLy ! Cezar Sangco ls (1) SuSLnuLu from Lhe pracLlce of law for
Lhree (3) monLhs effecLlve from recelpL hereof and (2) C8uL8Lu Lo pay a flne of
30000 payable from recelpL hereof LeL a copy of Lhls 8esoluLlon be enLered ln hls
record
l1 lS SC C8uL8Lu

Gk No L241S3 Iebruary 14 1983
VLLASCC VS VILLLGAS

lL8nAnuC cI
1hls ls an appeal from an order of Lhe lower courL dlsmlsslng a sulL for declaraLory
rellef challenglng Lhe consLlLuLlonallLy based on Crdlnance no 4964 of Lhe ClLy of
Manlla Lhe conLenLlon belng LhaL lL amounLs Lo a deprlvaLlon of properLy of
peLlLlonersappellanLs of Lhelr means of llvellhood wlLhouL due process of law 1he
assalled ordlnance ls worded Lhus lL shall be prohlblLed for any operaLor of any
barber shop Lo conducL Lhe buslness of massaglng cusLomers or oLher persons ln
any ad[acenL room or rooms of sald barber shop or ln any room or rooms wlLhln
Lhe same bulldlng where Lhe barber shop ls locaLed as long as Lhe operaLor of Lhe
barber shop and Lhe room where massaglng ls conducLed ls Lhe same person
1
As
noLed ln Lhe appealed order peLlLlonersappellanLs admlLLed LhaL crlmlnal cases for
Lhe vlolaLlon of Lhls ordlnance had been prevlously flled and declded 1he lower
courL Lherefore held LhaL a peLlLlon for declaraLory rellef dld noL lle lLs avallablllLy
belng dependenL on Lhere belng as yeL no case lnvolvlng such lssue havlng been
flled
2

Lven lf such were noL Lhe case Lhe aLLack agalnsL Lhe valldlLy cannoL succeed As
polnLed ouL ln Lhe brlef of respondenLsappellees lL ls a pollce power measure 1he
ob[ecLlves behlnd lLs enacLmenL are (1) 1o be able Lo lmpose paymenL of Lhe
llcense fee for engaglng ln Lhe buslness of massage cllnlc under Crdlnance no 3639
as amended by Crdlnance 4767 an enLlrely dlfferenL measure Lhan Lhe ordlnance
regulaLlng Lhe buslness of barbershops and (2) ln order Lo foresLall posslble
223

lmmorallLy whlch mlghL grow ouL of Lhe consLrucLlon of separaLe rooms for
massage of cusLomers
3
1hls CourL has been mosL llberal ln susLalnlng ordlnances
based on Lhe general welfare clause As far back as u5 v 5olovetlo
4
a 1918
declslon Lhls CourL Lhrough !usLlce Malcolm made clear Lhe slgnlflcance and scope
of such a clause whlch delegaLes ln sLaLuLory form Lhe pollce power Lo a
munlclpallLy As above sLaLed Lhls clause has been glven wlde appllcaLlon by
munlclpal auLhorlLles and has ln lLs relaLlon Lo Lhe parLlcular clrcumsLances of Lhe
case been llberally consLrued by Lhe courLs Such lL ls well Lo really ls Lhe
progresslve vlew of hlllpplne [urlsprudence
3
As lL was Lhen so lL has conLlnued
Lo be
6
1here ls no showlng Lherefore of Lhe unconsLlLuLlonallLy of such ordlnance
WPL8LlC8L Lhe appealed order of Lhe lower courL ls afflrmed no cosLs

Gk No LS9234 September 30 1982
1AkICA8 C9LkA1CkS CI ML1kC MANILA INC ILLICISIMC CA8IGAC and ACL
1kANS9Ck1A1ICN CCk9CkA1ICN peLlLloners
vs
1L 8CAkD CI 1kANS9Ck1A1ICN and 1L DIkLC1Ck CI 1L 8UkLAU CI LAND
1kANS9Ck1A1ICN respondenLs

MLLLNCICLkkLkA
1hls eLlLlon for CerLlorarl rohlblLlon and mandamus wlLh rellmlnary ln[uncLlon
and 1emporary 8esLralnlng Crder flled by Lhe 1axlcab CperaLors of MeLro Manlla
lnc lellclslmo Cablgao and Ace 1ransporLaLlon seeks Lo declare Lhe nulllLy of
Memorandum Clrcular no 7742 daLed CcLober 10 1977 of Lhe 8oard of
1ransporLaLlon and Memorandum Clrcular no 32 daLed AugusL 13 1980 of Lhe
8ureau of Land 1ransporLaLlon
eLlLloner 1axlcab CperaLors of MeLro Manlla lnc (1CMMl) ls a domesLlc
corporaLlon composed of Laxlcab operaLors who are granLees of CerLlflcaLes of
ubllc Convenlence Lo operaLe Laxlcabs wlLhln Lhe ClLy of Manlla and Lo any oLher
place ln Luzon accesslble Lo vehlcular Lrafflc eLlLloners Ace 1ransporLaLlon
CorporaLlon and lellclslmo Cablgao are Lwo of Lhe members of 1CMMl each belng
an operaLor and granLee of such cerLlflcaLe of publlc convenlence
Cn CcLober 10 1977 respondenL 8oard of 1ransporLaLlon (8C1) lssued
Memorandum Clrcular no 7742 whlch reads
Su8!LC1 haslng ouL and 8eplacemenL of
Cld and ullapldaLed 1axls
WPL8LAS lL ls Lhe pollcy of Lhe governmenL Lo lnsure LhaL only safe and
comforLable unlLs are used as publlc conveyances
WPL8LAS Lhe rldlng publlc parLlcularly ln MeLroManlla has Llme and agaln
complalned agalnsL and condemned Lhe conLlnued operaLlon of old and
dllapldaLed Laxls
WPL8LAS ln order LhaL Lhe commuLlng publlc may be assured of comforL
convenlence and safeLy a program of phaslng ouL of old and dllapldaLed Laxls
should be adopLed
WPL8LAS afLer sLudles and lnqulrles made by Lhe 8oard of 1ransporLaLlon Lhe
laLLer belleves LhaL ln slx years of operaLlon a Laxl operaLor has noL only covered
Lhe cosL of hls Laxls buL has made reasonable proflL for hls lnvesLmenLs
nCW 1PL8LlC8L pursuanL Lo Lhls pollcy Lhe 8oard hereby declares LhaL no car
beyond slx years shall be operaLed as Laxl and ln lmplemenLaLlon of Lhe same
hereby promulgaLes Lhe followlng rules and regulaLlons
1 As of uecember 31 1977 all Laxls of Model 1971 and earller are ordered
wlLhdrawn from publlc servlce and LhereafLer may no longer be reglsLered and
operaLed as Laxls ln Lhe reglsLraLlon of cards for 1978 only Laxls of Model 1972 and
laLer shall be accepLed for reglsLraLlon and allowed for operaLlon
2 As of uecember 31 1978 all Laxls of Model 1972 are ordered wlLhdrawn from
publlc servlce and LhereafLer may no longer be reglsLered and operaLed as Laxls ln
Lhe reglsLraLlon of cars for 1979 only Laxls of Model 1973 and laLer shall be
accepLed for reglsLraLlon and allowed for operaLlon and every year LhereafLer
Lhere shall be a slxyear llfeLlme of Laxl Lo wlL
1980 Model 1974
1981 Model 1973 eLc
All Laxls of earller models Lhan Lhose provlded above are hereby ordered wlLhdrawn
from publlc servlce as of Lhe lasL day of reglsLraLlon of each parLlcular year and Lhelr
respecLlve plaLes shall be surrendered dlrecLly Lo Lhe 8oard of 1ransporLaLlon for
subsequenL Lurnover Lo Lhe Land 1ransporLaLlon Commlsslon
lor an orderly lmplemenLaLlon of Lhls Memorandum Clrcular Lhe rules hereln shall
lmmedlaLely be effecLlve ln MeLroManlla lLs lmplemenLaLlon ouLslde MeLro
Manlla shall be carrled ouL only afLer Lhe pro[ecL has been lmplemenLed ln MeLro
Manlla and only afLer Lhe daLe has been deLermlned by Lhe 8oard
1

ursuanL Lo Lhe above 8C1 clrcular respondenL ulrecLor of Lhe 8ureau of Land
1ransporLaLlon (8L1) lssued lmplemenLlng Clrcular no 32 daLed AugusL 13 1980
lnsLrucLlng Lhe 8eglonal ulrecLor Lhe Mv 8eglsLrars and oLher personnel of 8L1 all
wlLhln Lhe naLlonal CaplLol 8eglon Lo lmplemenL sald Clrcular and formulaLlng a
schedule of phaseouL of vehlcles Lo be allowed and accepLed for reglsLraLlon as
publlc conveyances 1o quoLe sald Clrcular
ursuanL Lo 8C1 MemoClrcular no 7742 Laxl unlLs wlLh year models over slx (6)
years old are now banned from operaLlng as publlc uLlllLles ln MeLro Manlla As
such Lhe unlLs lnvolved should be consldered as auLomaLlcally dropped as publlc
uLlllLles and Lherefore do noL requlre any furLher dropplng order from Lhe 8C1
PenceforLh Laxl unlLs wlLhln Lhe naLlonal CaplLol 8eglon havlng year models over 6
years old shall be refused reglsLraLlon 1he followlng schedule of phaseouL ls
herewlLh prescrlbed for Lhe guldance of all concerned
224

?ear Model AuLomaLlc haseCuL ?ear
1980
1974 1981
1973 1982
1976 1983
1977
eLc eLc
SLrlcL compllance here ls deslred
2

ln accordance LherewlLh cabs of model 1971 were phaseouL ln reglsLraLlon year
1978 Lhose of model 1972 ln 1979 Lhose of model 1973 ln 1980 and Lhose of
model 1974 ln 1981
Cn !anuary 27 1981 peLlLloners flled a eLlLlon wlLh Lhe 8C1 dockeLed as Case no
807333 seeklng Lo nulllfy MC no 7742 or Lo sLop lLs lmplemenLaLlon Lo allow Lhe
reglsLraLlon and operaLlon ln 1981 and subsequenL years of Laxlcabs of model 1974
as well as Lhose of earller models whlch were phasedouL provlded LhaL aL Lhe
Llme of reglsLraLlon Lhey are roadworLhy and flL for operaLlon
Cn lebruary 16 1981 peLlLloners flled before Lhe 8C1 a ManlfesLaLlon and urgenL
MoLlon praylng for an early hearlng of Lhelr peLlLlon 1he case was heard on
lebruary 20 1981 eLlLloners presenLed LesLlmonlal and documenLary evldence
offered Lhe same and manlfesLed LhaL Lhey would submlL addlLlonal documenLary
proofs Sald proofs were submlLLed on March 27 1981 aLLached Lo peLlLloners
pleadlng enLlLled ManlfesLaLlon resenLaLlon of AddlLlonal Lvldence and
Submlsslon of Lhe Case for 8esoluLlon
3

Cn november 28 1981 peLlLloners flled before Lhe same 8oard a ManlfesLaLlon
and urgenL MoLlon Lo 8esolve or ueclde Maln eLlLlon praylng LhaL Lhe case be
resolved or declded noL laLer Lhan uecember 10 1981 Lo enable Lhem ln case of
denlal Lo avall of whaLever remedy Lhey may have under Lhe law for Lhe proLecLlon
of Lhelr lnLeresLs before Lhelr 1973 model cabs are phasedouL on !anuary 1 1982
eLlLloners Lhrough lLs resldenL allegedly made personal followups of Lhe case
buL was laLer lnformed LhaL Lhe records of Lhe case could noL be locaLed
Cn uecember 29 1981 Lhe presenL eLlLlon was lnsLlLuLed whereln Lhe followlng
querles were posed for conslderaLlon by Lhls CourL
A uld 8C1 and 8L1 promulgaLe Lhe quesLloned memorandum clrculars ln accord
wlLh Lhe manner requlred by resldenLlal uecree no 101 Lhereby safeguardlng Lhe
peLlLloners consLlLuLlonal rlghL Lo procedural due process?
8 CranLlng arguendo LhaL respondenLs dld comply wlLh Lhe procedural
requlremenLs lmposed by resldenLlal uecree no 101 would Lhe lmplemenLaLlon
and enforcemenL of Lhe assalled memorandum clrculars vlolaLe Lhe peLlLloners
consLlLuLlonal rlghLs Lo
(1) Lqual proLecLlon of Lhe law
(2) SubsLanLlve due process and
(3) roLecLlon agalnsL arblLrary and unreasonable classlflcaLlon and sLandard?
Oo ltoceJotol ooJ 5obstootlve uoe ltocess
resldenLlal uecree no 101 granLs Lo Lhe 8oard of 1ransporLaLlon Lhe power
4 1o flx [usL and reasonable sLandards classlflcaLlon regulaLlons pracLlces
measuremenLs or servlce Lo be furnlshed lmposed observed and followed by
operaLors of publlc uLlllLy moLor vehlcles
SecLlon 2 of sald uecree provldes procedural guldellnes for sald agency Lo follow ln
Lhe exerclse of lLs powers
Sec 2 Lxerclse of powers ln Lhe exerclse of Lhe powers granLed ln Lhe precedlng
secLlon Lhe 8oard shag proceed prompLly along Lhe meLhod of leglslaLlve lnqulry
AparL from lLs own lnvesLlgaLlon and sLudles Lhe 8oard ln lLs dlscreLlon may
requlre Lhe cooperaLlon and asslsLance of Lhe 8ureau of 1ransporLaLlon Lhe
hlllpplne ConsLabulary parLlcularly Lhe Plghway aLrol Croup Lhe supporL
agencles wlLhln Lhe ueparLmenL of ubllc Works 1ransporLaLlon and
CommunlcaLlons or any oLher governmenL offlce or agency LhaL may be able Lo
furnlsh useful lnformaLlon or daLa ln Lhe formulaLlon of Lhe 8oard of any pollcy
plan or program ln Lhe lmplemenLaLlon of Lhls uecree
1he 8oard may also can conferences requlre Lhe submlsslon of poslLlon papers or
oLher documenLs lnformaLlon or daLa by operaLors or oLher persons LhaL may be
affecLed by Lhe lmplemenLaLlon of Lhls uecree or employ any oLher sulLable means
of lnqulry
ln supporL of Lhelr submlsslon LhaL Lhey were denled procedural due process
peLlLloners conLend LhaL Lhey were noL caged upon Lo submlL Lhelr poslLlon papers
nor were Lhey ever summoned Lo aLLend any conference prlor Lo Lhe lssuance of
Lhe quesLloned 8C1 Clrcular
lL ls clear from Lhe provlslon aforequoLed however LhaL Lhe leeway accorded Lhe
8oard glves lL a wlde range of cholce ln gaLherlng necessary lnformaLlon or daLa ln
Lhe formulaLlon of any pollcy plan or program lL ls noL mandaLory LhaL lL should
flrsL call a conference or requlre Lhe submlsslon of poslLlon papers or oLher
documenLs from operaLors or persons who may be affecLed Lhls belng only one of
Lhe opLlons open Lo Lhe 8oard whlch ls glven wlde dlscreLlonary auLhorlLy
eLlLloners cannoL [usLlflably clalm Lherefore LhaL Lhey were deprlved of
procedural due process nelLher can Lhey sLaLe wlLh cerLalnLy LhaL publlc
respondenLs had noL avalled of oLher sources of lnqulry prlor Lo lssulng Lhe
challenged Clrculars operaLors of publlc conveyances are noL Lhe only prlmary
sources of Lhe daLa and lnformaLlon LhaL may be deslred by Lhe 8C1
223

ulspenslng wlLh a publlc hearlng prlor Lo Lhe lssuance of Lhe Clrculars ls nelLher
vlolaLlve of procedural due process As held ln CenLral 8ank vs Pon Clorlbel and
8anco llllplno 44 SC8A 307 (1972)
evlous noLlce and hearlng as elemenLs of due process are consLlLuLlonally
requlred for Lhe proLecLlon of llfe or vesLed properLy rlghLs as well as of llberLy
when lLs llmlLaLlon or loss Lakes place ln consequence of a [udlclal or quasl[udlclal
proceedlng generally dependenL upon a pasL acL or evenL whlch has Lo be
esLabllshed or ascerLalned lL ls noL essenLlal Lo Lhe valldlLy of general rules or
regulaLlons promulgaLed Lo govern fuLure conducL of a class or persons or
enLerprlses unless Lhe law provldes oLherwlse (Lmphasls supplled)
eLlLloners furLher Lake Lhe poslLlon LhaL flxlng Lhe celllng aL slx (6) years ls arblLrary
and oppresslve because Lhe roadworLhlness of Laxlcabs depends upon Lhelr klnd of
malnLenance and Lhe use Lo whlch Lhey are sub[ecLed and Lherefore Lhelr acLual
physlcal condlLlon should be Laken lnLo conslderaLlon aL Lhe Llme of reglsLraLlon As
publlc conLend however lL ls lmpracLlcal Lo sub[ecL every Laxlcab Lo consLanL and
recurrlng evaluaLlon noL Lo speak of Lhe facL LhaL lL can open Lhe door Lo Lhe
adopLlon of mulLlple sLandards posslble colluslon and even grafL and corrupLlon A
reasonable sLandard musL be adopLed Lo apply Lo an vehlcles affecLed unlformly
falrly and [usLly 1he span of slx years supplles LhaL reasonable sLandard 1he
producL of experlence shows LhaL by LhaL Llme Laxls have fully depreclaLed Lhelr
cosL recovered and a falr reLurn on lnvesLmenL obLalned 1hey are also generally
dllapldaLed and no longer flL for safe and comforLable servlce Lo Lhe publlc speclally
conslderlng LhaL Lhey are ln conLlnuous operaLlon pracLlcally 24 hours everyday ln
Lhree shlfLs of elghL hours per shlfL WlLh LhaL sLandard of reasonableness and
absence of arblLrarlness Lhe requlremenL of due process has been meL
Oo pool ltotectloo of tbe low
eLlLloners alleged LhaL Lhe Clrcular ln quesLlon vlolaLes Lhelr rlghL Lo equal
proLecLlon of Lhe law because Lhe same ls belng enforced ln MeLro Manlla only and
ls dlrecLed solely Lowards Lhe Laxl lndusLry AL Lhe ouLseL lL should be polnLed ouL
LhaL lmplemenLaLlon ouLslde MeLro Manlla ls also envlsloned ln Memorandum
Clrcular no 7742 1o repeaL Lhe perLlnenL porLlon
lor an orderly lmplemenLaLlon of Lhls Memorandum Clrcular Lhe rules hereln shall
lmmedlaLely be effecLlve ln MeLro Manlla lLs lmplemenLaLlon ouLslde MeLro Manlla
shall be carrled ouL only afLer Lhe pro[ecL has been lmplemenLed ln MeLro Manlla
and only afLer Lhe daLe has been deLermlned by Lhe 8oard
4

ln facL lL ls Lhe undersLandlng of Lhe CourL LhaL lmplemenLaLlon of Lhe Clrculars ln
Cebu ClLy ls already belng effecLed wlLh Lhe 8C1 ln Lhe process of conducLlng
sLudles regardlng Lhe operaLlon of Laxlcabs ln oLher clLles
1he 8oards reason for enforclng Lhe Clrcular lnlLlally ln MeLro Manlla ls LhaL
Laxlcabs ln Lhls clLy compared Lo Lhose of oLher places are sub[ecLed Lo heavler
Lrafflc pressure and more consLanL use 1hls ls of common knowledge Conslderlng
LhaL Lrafflc condlLlons are noL Lhe same ln every clLy a subsLanLlal dlsLlncLlon exlsLs
so LhaL lnfrlngemenL of Lhe equal proLecLlon clause can hardly be successfully
clalmed
As enunclaLed ln Lhe preambular clauses of Lhe challenged 8C1 Clrcular Lhe
overrldlng conslderaLlon ls Lhe safeLy and comforL of Lhe rldlng publlc from Lhe
dangers posed by old and dllapldaLed Laxls 1he SLaLe ln Lhe exerclse of lLs pollce
power can prescrlbe regulaLlons Lo promoLe Lhe healLh morals peace good order
safeLy and general welfare of Lhe people lL can prohlblL all Lhlngs hurLful Lo
comforL safeLy and welfare of socleLy
S
lL may also regulaLe properLy rlghLs
6
ln Lhe
language of Chlef !usLlce Lnrlque M lernando Lhe necesslLles lmposed by publlc
welfare may [usLlfy Lhe exerclse of governmenLal auLhorlLy Lo regulaLe even lf
Lhereby cerLaln groups may plauslbly asserL LhaL Lhelr lnLeresLs are dlsregarded
7

ln so far as Lhe nonappllcaLlon of Lhe assalled Clrculars Lo oLher LransporLaLlon
servlces ls concerned lL need only be recalled LhaL Lhe equal proLecLlon clause does
noL lmply LhaL Lhe same LreaLmenL be accorded all and sundry lL applles Lo Lhlngs
or persons ldenLlcally or slmllarly slLuaLed lL permlLs of classlflcaLlon of Lhe ob[ecL
or sub[ecL of Lhe law provlded classlflcaLlon ls reasonable or based on subsLanLlal
dlsLlncLlon whlch make for real dlfferences and LhaL lL musL apply equally Lo each
member of Lhe class
8
WhaL ls requlred under Lhe equal proLecLlon clause ls Lhe
unlform operaLlon by legal means so LhaL all persons under ldenLlcal or slmllar
clrcumsLance would be accorded Lhe same LreaLmenL boLh ln prlvllege conferred
and Lhe llablllLles lmposed
9
1he challenged Clrculars saLlsfy Lhe foregolng crlLerla
LvldenL Lhen ls Lhe concluslon LhaL Lhe quesLloned Clrculars do noL suffer from any
consLlLuLlonal lnflrmlLy 1o declare a law unconsLlLuLlonal Lhe lnfrlngemenL of
consLlLuLlonal rlghL musL be clear caLegorlcal and undenlable
10

WPL8LlC8L Lhe WrlLs prayed for are denled and Lhls eLlLlon ls hereby dlsmlssed
no cosLs
SC C8uL8Lu


Gk No L10S72 December 21 191S
CUkCILL AND 1AI1 VS kAIILk1

1kLN1
1he [udgmenL appealed from ln Lhls case perpeLually resLralns and prohlblLs Lhe
defendanL and hls depuLles from collecLlng and enforclng agalnsL Lhe plalnLlffs and
Lhelr properLy Lhe annual Lax menLloned and descrlbed ln subsecLlon (b) of secLlon
100 of AcL no 2339 effecLlve !uly 1 1914 and from desLroylng or removlng any
slgn slgnboard or blllboard Lhe properLy of Lhe plalnLlffs for Lhe sole reason LhaL
such slgn slgnboard or blllboard ls or may be offenslve Lo Lhe slghL and decrees
Lhe cancellaLlon of Lhe bond glven by Lhe plalnLlffs Lo secure Lhe lssuance of Lhe
prellmlnary ln[uncLlon granLed soon afLer Lhe commencemenL of Lhls acLlon
226

1hls case dlvldes lLself lnLo Lwo parLs and glves rlse Lo Lwo maln quesLlons (1) LhaL
relaLlng Lo Lhe power of Lhe courL Lo resLraln by ln[uncLlon Lhe collecLlon of Lhe Lax
complalned of and (2) LhaL relaLlng Lo Lhe valldlLy of Lhose provlslons of subsecLlon
(b) of secLlon 100 of AcL no 2339 conferrlng power upon Lhe CollecLor of lnLernal
8evenue Lo remove any slgn slgnboard or blllboard upon Lhe ground LhaL Lhe same
ls offenslve Lo Lhe slghL or ls oLherwlse a nulsance
1he flrsL quesLlon ls one of Lhe [urlsdlcLlon and ls of vlLal lmporLance Lo Lhe
CovernmenL 1he secLlons of AcL no 2339 whlch bear dlrecLly upon Lhe sub[ecL
are 139 and 140 1he flrsL expressly forblds Lhe use of an ln[uncLlon Lo sLay Lhe
collecLlon of any lnLernal revenue Lax Lhe second provldes a remedy for any wrong
ln connecLlon wlLh such Laxes and Lhls remedy was lnLended Lo be excluslve
Lhereby precludlng Lhe remedy by ln[uncLlon whlch remedy ls clalmed Lo be
consLlLuLlonal 1he Lwo secLlons Lhen lnvolve Lhe rlghL of a dlssaLlsfled Laxpayers Lo
use an excepLlonal remedy Lo LesL Lhe valldlLy of any Lax or Lo deLermlne any oLher
quesLlon connecLed LherewlLh and Lhe quesLlon wheLher Lhe remedy by ln[uncLlon
ls excepLlonal
revenLlve remedles of Lhe courLs are exLraordlnary and are noL Lhe usual
remedles 1he orlgln and hlsLory of Lhe wrlL of ln[uncLlon show LhaL lL has always
been regarded as an exLraordlnary prevenLlve remedy as dlsLlngulshed from Lhe
common course of Lhe law Lo redress evlls afLer Lhey have been consummaLed no
ln[uncLlon lssues as of course buL ls granLed only upon Lhe oaLh of a parLy and
when Lhere ls no adequaLe remedy aL law 1he CovernmenL does by secLlon 139
and 140 Lake away Lhe prevenLlve remedy of ln[uncLlon lf lL ever exlsLed and
leaves Lhe Laxpayer ln a conLesL wlLh lL Lhe same ordlnary remedlal acLlons whlch
prevall beLween clLlzen and clLlzen 1he ALLorneyCeneral on behalf of Lhe
defendanL conLends LhaL Lhere ls no provlslons of Lhe paramounL law whlch
prohlblLs such a course Whlle on Lhe oLher hand counsel for plalnLlffs urge LhaL
Lhe Lwo secLlons are unconsLlLuLlonal because (a) Lhey aLLempL Lo deprlve aggrleved
Laxpayers of all subsLanLlal remedy for Lhe proLecLlon of Lhelr properLy Lhereby ln
effecL deprlvlng Lhem of Lhelr properLy wlLhouL due process of law and (b) Lhey
aLLempL Lo dlmlnlsh Lhe [urlsdlcLlon of Lhe courLs as conferred upon Lhem by AcLs
nos 136 and 190 whlch [urlsdlcLlon was raLlfled and conflrmed by Lhe AcL of
Congress of !uly 1 1902
ln Lhe flrsL place lL has been suggesLed LhaL secLlon 139 does noL apply Lo Lhe Lax ln
quesLlon because Lhe secLlon ln speaklng of a Lax means only legal Laxes and
LhaL an lllegal Lax (Lhe one complalned of) ls noL a Lax and Lherefore does noL fall
wlLhln Lhe lnhlblLlon of Lhe secLlon and may be resLralned by ln[uncLlon 1here ls no
force ln Lhls suggesLlon 1he lnhlblLlon applles Lo all lnLernal revenue Laxes lmposes
or auLhorlzed Lo be lmposed by AcL no 2339 (Snyder vs Marks 109 uS 189)
And furLhermore Lhe mere facL LhaL a Lax ls lllegal or LhaL Lhe law by vlrLue of
whlch lL ls lmposed ls unconsLlLuLlonal does noL auLhorlze a courL of equlLy Lo
resLraln lLs collecLlon by ln[uncLlon 1here musL be a furLher showlng LhaL Lhere are
speclal clrcumsLances whlch brlng Lhe case under some well recognlzed head of
equlLy [urlsprudence such as LhaL lrreparable ln[ury mulLlpllclLy of sulLs or a cloud
upon LlLle Lo real esLaLe wlll resulL and also LhaL Lhere ls as we have lndlcaLed no
adequaLe remedy aL law 1hls ls Lhe seLLled law ln Lhe unlLed SLaLes even ln Lhe
absence of sLaLuLory enacLmenLs such as secLlons 139 and 140 (Pannewlnkle vs
Mayor eLc of CeorgeLown 82 uS 347 lndlana Mfg Co vs koehne 188 uS
681 Chlo 1ax cases 232 u S 376 387 lLLsburgh C C SL L 8 Co vs 8oard of
ubllc Works 172 u S 32 ShelLon vs laL 139 uS 391 SLaLe 8allroad 1ax Cases
92 u S 373) 1herefore Lhls branch of Lhe case musL be conLrolled by secLlons 139
and 140 unless Lhe same be held unconsLlLuLlonal and consequenLly null and vold
1he rlghL and power of [udlclal Lrlbunals Lo declare wheLher enacLmenLs of Lhe
leglslaLure exceed Lhe consLlLuLlonal llmlLaLlons and are lnvalld has always been
consldered a grave responslblllLy as well as a solemn duLy 1he courLs lnvarlably
glve Lhe mosL careful conslderaLlon Lo quesLlons lnvolvlng Lhe lnLerpreLaLlon and
appllcaLlon of Lhe ConsLlLuLlon and approach consLlLuLlonal quesLlons wlLh greaL
dellberaLlon exerclslng Lhelr power ln Lhls respecL wlLh Lhe greaLesL posslble
cauLlon and even relucLance and Lhey should never declare a sLaLuLe vold unless
lLs lnvalldlLy ls ln Lhelr [udgmenL beyond reasonable doubL 1o [usLlfy a courL ln
pronounclng a leglslaLlve acL unconsLlLuLlonal or a provlslon of a sLaLe consLlLuLlon
Lo be ln conLravenLlon of Lhe ConsLlLuLlon of Lhe unlLed SLaLes Lhe case musL be so
clear Lo be free from doubL and Lhe confllcL of Lhe sLaLuLe wlLh Lhe consLlLuLlon
musL be lrreconcllable because lL ls buL a decenL respecL Lo Lhe wlsdom Lhe
lnLegrlLy and Lhe paLrloLlsm of Lhe leglslaLlve body by whlch any law ls passed Lo
presume ln favor of lLs valldlLy unLll Lhe conLrary ls shown beyond reasonable
doubL 1herefore ln no doubLful case wlll Lhe [udlclary pronounce a leglslaLlve acL
Lo be conLrary Lo Lhe consLlLuLlon 1o doubL Lhe consLlLuLlonallLy of a law ls Lo
resolve Lhe doubL ln favor of lLs valldlLy (6 8ullng Case Law secs 71 72 and 73
and cases clLed Lhereln)
lL ls also Lhe seLLled law ln Lhe unlLed SLaLes LhaL due process of law does noL
always requlre ln respecL Lo Lhe CovernmenL Lhe same process LhaL ls requlred
beLween clLlzens Lhough lL generally lmplles and lncludes regular allegaLlons
opporLunlLy Lo answer and a Lrlal accordlng Lo some well seLLled course of [udlclal
proceedlngs 1he case wlLh whlch we are deallng ls ln polnL A clLlzens properLy
boLh real and personal may be Laken and usually ls Laken by Lhe governmenL ln
paymenL of lLs Laxes wlLhouL any [udlclal proceedlngs whaLever ln Lhls counLry as
well as ln Lhe unlLed SLaLes Lhe offlcer charged wlLh Lhe collecLlon of Laxes ls
auLhorlzed Lo selze and sell Lhe properLy of dellnquenL Laxpayers wlLhouL applylng
Lo Lhe courLs for asslsLance and Lhe consLlLuLlonallLy of Lhe law auLhorlzlng Lhls
procedure never has been serlously quesLloned (ClLy of hlladelphla vs ulehl 1he
CollecLor 3 Wall 720 nlcholl vs uS 7 Wall 122 and cases clLed) 1hls musL
necessarlly be Lhe course because lL ls upon LaxaLlon LhaL Lhe CovernmenL chlefly
relles Lo obLaln Lhe means Lo carry on lLs operaLlons and lL ls of Lhe uLmosL
227

lmporLance LhaL Lhe modes adopLed Lo enforce Lhe collecLlon of Lhe Laxes levled
should be summary and lnLerfered wlLh as llLLle as posslble no governmenL could
exlsL lf every llLlglous man were permlLLed Lo delay Lhe collecLlon of lLs Laxes 1hls
prlnclple of publlc pollcy musL be consLanLly borne ln mlnd ln deLermlnlng cases
such as Lhe one under conslderaLlon
WlLh Lhese prlnclples Lo gulde us we wlll proceed Lo lnqulre wheLher Lhere ls any
merlL ln Lhe Lwo proposlLlons lnslsLed upon by counsel for Lhe plalnLlffs SecLlon 3 of
Lhe hlllpplne 8lll provldes 1haL no law shall be enacLed ln sald lslands whlch shall
deprlve any person of llfe llberLy or properLy wlLhouL due process of law or deny
Lo any person Lhereln Lhe equal proLecLlon of Lhe law
1he orlgln and hlsLory of Lhese provlslons are wellknown 1hey are found ln
subsLance ln Lhe ConsLlLuLlon of Lhe unlLed SLaLes and ln LhaL of ever sLaLe ln Lhe
unlon
SecLlon 3224 of Lhe 8evlsed SLaLuLes of Lhe unlLed SLaLes effecLlve slnce 1867
provldes LhaL no sulL for Lhe purpose of resLralnlng Lhe assessmenL or collecLlon
of any Lax shall be malnLalned ln any courL
SecLlon 139 wlLh whlch we have been deallng reads no courL shall have auLhorlLy
Lo granL an ln[uncLlon Lo resLraln Lhe collecLlon of any lnLernalrevenue Lax
A comparlson of Lhese Lwo secLlons show LhaL Lhey are essenLlally Lhe same 8oLh
expressly prohlblL Lhe resLralnlng of Laxes by ln[uncLlon lf Lhe Supreme CourL of Lhe
unlLed SLaLes has clearly and deflnlLely held LhaL Lhe provlslons of secLlon 3224 do
noL vlolaLe Lhe due process of law and equal proLecLlon of Lhe law clauses ln Lhe
ConsLlLuLlon we would be golng Loo far Lo hold LhaL secLlon 139 vlolaLes Lhose
same provlslons ln Lhe hlllpplne 8lll 1haL Lhe Supreme CourL of Lhe unlLed SLaLes
has so held cannoL be doubLed
ln CheaLham vs unlLed SLaLes (92 uS 8389) whlch lnvolved Lhe valldlLy of an
lncome Lax levled by an acL of Congress prlor Lo Lhe one ln lssue ln Lhe case of
ollock vs larmers Loan 1rusL Co (137 uS 429) Lhe courL Lhrough Mr !usLlce
Mlller sald lf Lhere exlsLed ln Lhe courLs sLaLe or naLlonal any general power of
lmpedlng or conLrolllng Lhe collecLlon of Laxes or rellevlng Lhe hardshlp lncldenL Lo
LaxaLlon Lhe very exlsLence of Lhe governmenL mlghL be placed ln Lhe power of a
hosLlle [udlclary (uows vs 1he ClLy of Chlcago 11 Wall 108) Whlle a free course
of remonsLrance and appeal ls allowed wlLhln Lhe deparLmenLs before Lhe money ls
flnally exacLed Lhe Ceneral CovernmenL has wlsely made Lhe paymenL of Lhe Lax
clalmed wheLher of cusLoms or of lnLernal revenue a condlLlon precedenL Lo a
resorL Lo Lhe courLs by Lhe parLy agalnsL whom Lhe Lax ls assessed ln Lhe lnLernal
revenue branch lL has furLher prescrlbed LhaL no such sulL shall be broughL unLll Lhe
remedy by appeal has been Lrled and lf broughL afLer Lhls lL musL be wlLhln slx
monLhs afLer Lhe declslon on Lhe appeal We regard Lhls as a condlLlon on whlch
alone Lhe governmenL consenLs Lo llLlgaLe Lhe lawfulness of Lhe orlglnal Lax lL ls noL
a hard condlLlon lew governmenLs have conceded such a rlghL on any condlLlon lf
Lhe compllance wlLh Lhls condlLlon requlres Lhe parLy aggrleved Lo pay Lhe money
he musL do lL
Agaln ln SLaLe 8allroad 1ax Cases (92 uS 373 613) Lhe courL sald 1haL Lhere
mlghL be no mlsundersLandlng of Lhe unlversallLy of Lhls prlnclple lL was expressly
enacLed ln 1867 LhaL no sulL for Lhe purpose of resLralnlng Lhe assessmenL or
collecLlon of any Lax shall be malnLalned ln any courL (8ev SLaL sec 3224) And
Lhough Lhls was lnLended Lo apply alone Lo Laxes levled by Lhe unlLed SLaLes lL
shows Lhe sense of Congress of Lhe evlls Lo be feared lf courLs of [usLlce could ln
any case lnLerfere wlLh Lhe process of collecLlng Laxes on whlch Lhe governmenL
depends for lLs conLlnued exlsLence lL ls a wlse pollcy lL ls founded ln Lhe slmple
phllosophy derlved from Lhe experlence of ages LhaL Lhe paymenL of Laxes has Lo
be enforced by summary and sLrlngenL means agalnsL a relucLanL and ofLen adverse
senLlmenL and Lo do Lhls successfully oLher lnsLrumenLallLles and oLher modes of
procedure are necessary Lhan Lhose whlch belong Lo courLs of [usLlce
And agaln ln Snyder vs Marks (109 uS 189) Lhe courL sald 1he remedy of a sulL
Lo recover back Lhe Lax afLer lL ls pald ls provlded by sLaLuLe and a sulL Lo resLraln
lLs collecLlon ls forbldden 1he remedy so glven ls excluslve and no oLher remedy
can be subsLlLuLed for lL Such has been Lhe currenL of declslons ln Lhe ClrculL CourLs
of Lhe unlLed SLaLes and we are saLlsfled lL ls a correcL vlew of Lhe lawltco1f
ln Lhe conslderaLlon of Lhe plalnLlffs second proposlLlon we wlll aLLempL Lo show
(1) LhaL Lhe hlllpplne courLs never have had slnce Lhe Amerlcan occupaLlon Lhe
power Lo resLraln by ln[uncLlon Lhe collecLlon of any Lax lmposed by Lhe lnsular
CovernmenL for lLs own purpose and beneflL and (2) LhaL assumlng LhaL our courLs
had or have such power Lhls power has noL been dlmlnlshed or curLalled by
secLlons 139 and 140
We wlll flrsL revlew brlefly Lhe former and presenL sysLems of LaxaLlon upon Lhe
Amerlcan occupaLlon of Lhe hlllpplne Lhere was found a falrly compleLe sysLem of
LaxaLlon 1hls sysLem was conLlnued ln force by Lhe mlllLary auLhorlLles wlLh buL
few changes unLll Lhe Clvll CovernmenL assumed charge of Lhe sub[ecL 1he
prlnclpal sources of revenue under Lhe Spanlsh reglme were derlved from cusLoms
recelpLs Lhe socalled lndusLrlal Laxes Lhe urbana Laxes Lhe sLamp Lax Lhe
personal cedula Lax and Lhe sale of Lhe publlc domaln 1he lndusLrlal and urbana
Laxes consLlLuLed pracLlcally an lncome Lax of some 3 per cenL on Lhe neL lncome of
persons engaged ln lndusLrlal and commerclal pursulLs and on Lhe lncome of
owners of lmproved clLy properLy 1he sale of sLamped paper and adheslve sLamp
Lax 1he cedula Lax was a graduaLed Lax ranglng from noLhlng up Lo 3730 1he
revenue derlved from Lhe sale of Lhe publlc domaln was noL consldered a Lax 1he
Amerlcan auLhorlLles aL once abollshed Lhe cedula Lax buL laLer resLored lL ln a
modlfled form charglng for each cedula LwenLy cenLavos an amounL whlch was
supposed Lo be [usL sufflclenL Lo cover Lhe cosL of lssuance 1he urbana Lax was
abollshed by AcL no 223 effecLlve SepLember 6 1901
228

1he Munlclpal Code (AcL no 82) and Lhe rovlnclal CovernmenL AcL (no 83)
boLh enacLed ln 1901 auLhorlze munlclpal counclls and provlnclal boards Lo lmpose
an oJ volotem Lax on real esLaLe 1he Munlclpal Code dld noL apply Lo Lhe clLy of
Manlla 1hls clLy was glven a speclal charLer (AcL no 183) effecLlve AugusL 30
1901 under Lhls charLer Lhe Munlclpal 8oard of Manlla ls auLhorlzed and
empowered Lo lmpose Laxes upon real esLaLe and llke munlclpal counclls Lo llcense
and regulaLe cerLaln occupaLlons CusLoms maLLers were compleLely reorganlzed by
AcL no 333 effecLlve aL Lhe porL of Manlla on lebruary 7 1902 and aL oLher porLs
ln Lhe hlllpplne lslands Lhe day afLer Lhe recelpL of a cerLlfled copy of Lhe AcL 1he
lnLernal 8evenue Law of 1904 (AcL no 1189) repealed all exlsLlng laws ordlnances
eLc lmposlng Laxes upon Lhe persons ob[ecLs or occupaLlons Laxed under LhaL acL
and all lndusLrlal Laxes and sLamp Laxes lmposed under Lhe Spanlsh reglme were
ellmlnaLed buL Lhe lndusLrlal Lax was conLlnued ln force unLll !anuary 1 1903 1hls
lnLernal 8evenue Law dld noL Lake away from munlclpal counclls provlnclal boards
and Lhe Munlclpal 8oard of Lhe clLy of Manlla Lhe power Lo lmpose Laxes upon real
esLaLe 1hls AcL (no 1189) wlLh lLs amendmenLs was repealed by AcL no 2339 an
acL revlslng and consolldaLlng Lhe laws relaLlve Lo lnLernal revenue
SecLlon 84 of AcL no 82 provldes LhaL no courL shall enLerLaln any sulL assalllng
Lhe valldlLy of a Lax assessed under Lhls acL unLll Lhe Laxpayer shall have pald under
proLesL Lhe Laxes assessed agalnsL hlm
1hls lnhlblLlon was lnserLed ln secLlon 17 of AcL no 83 and applles Lo Laxes lmposed
by provlnclal boards 1he lnhlblLlon was noL lnserLed ln Lhe Manlla CharLer unLll Lhe
passage of AcL no 1793 effecLlve CcLober 12 1907 AcL no 333 expressly makes
Lhe paymenL of Lhe exacLlons clalmed a condlLlon precedenL Lo a resorL Lo Lhe
courLs by dlssaLlsfled lmporLers SecLlon 32 of AcL no 1189 provldes 1haL no
courLs shall have auLhorlLy Lo granL an ln[uncLlon resLralnlng Lhe collecLlon of any
Laxes lmposed by vlrLue of Lhe provlslons of Lhls AcL buL Lhe remedy of Lhe
Laxpayer who clalms LhaL he ls un[usLly assessed or Laxed shall be by paymenL under
proLesL of Lhe sum clalmed from hlm by Lhe CollecLor of lnLernal 8evenue and by
acLlon Lo recover back Lhe sum clalmed Lo have been lllegally collecLed
SecLlons 139 and 140 of AcL no 2339 conLaln as we have lndlcaLed Lhe same
prohlblLlon and remedy 1he resulL ls LhaL Lhe courLs have been expressly
forbldden ln every acL creaLlng or lmposlng Laxes or lmposLs enacLed by Lhe
leglslaLlve body of Lhe hlllpplnes slnce Lhe Amerlcan occupaLlon Lo enLerLaln any
sulL assalllng Lhe valldlLy of any Lax or lmposL Lhus lmposed unLll Lhe Lax shall have
been pald under proLesL 1he only Laxes whlch have noL been broughL wlLhln Lhe
express lnhlblLlon were Lhose lncluded ln LhaL parL of Lhe old Spanlsh sysLem whlch
compleLely dlsappeared on or before !anuary 1 1903 and posslbly Lhe old cusLoms
duLles whlch dlsappeared ln lebruary 1902
SecLlon 36 of Lhe Crganlc AcL (no 136) effecLlve !une 16 1901 provldes LhaL
CourLs of llrsL lnsLance shall have orlglnal [urlsdlcLlon

2 ln all clvll acLlons whlch lnvolve Lhe legallLy of any Lax lmposL or assessmenL


7 Sald courLs and Lhelr [udges or any of Lhem shall have power Lo lssue wrlLs of
ln[uncLlon mooJomos cettlototl prohlblLlon poo wottooto and bobeos cotpos ln
Lhelr respecLlve provlnces and dlsLrlcLs ln Lhe manner provlded ln Lhe Code of Clvll
rocedure
1he provlslons of Lhe Code of Clvll rocedure (AcL no 190) effecLlve CcLober 1
1901 whlch deals wlLh Lhe sub[ecL of ln[uncLlons are secLlons 162 Lo 172 lncluslve
ln[uncLlons as here deflned are of Lwo klnds prellmlnary and flnal 1he former may
be granLed aL any Llme afLer Lhe commencemenL of Lhe acLlon and before flnal
[udgmenL and Lhe laLLer aL Lhe LermlnaLlon of Lhe Lrlal as Lhe rellef or parL of Lhe
rellef prayed for (sec 162) Any [udge of Lhe Supreme CourL may granL a prellmlnary
ln[uncLlon ln any acLlon pendlng ln LhaL courL or ln any CourL of llrsL lnsLance A
prellmlnary ln[uncLlon may also be granLed by a [udge of Lhe CourL of llrsL lnsLance
ln acLlons pendlng ln hls dlsLrlcL ln whlch he has orlglnal [urlsdlcLlon (sec 163) 8uL
such ln[uncLlons may be granLed ooly when Lhe complalnL shows facLs enLlLllng Lhe
plalnLlff Lo Lhe rellef demanded (sec 166) and before a flnal or permanenL
ln[uncLlon can be granLed lL musL appear upon Lhe Lrlal of Lhe acLlon LhaL Lhe
plalnLlff ls enLlLled Lo have commlsslon or conLlnuance of Lhe acLs complalned of
perpeLually resLralned (sec 171) 1hese provlslons auLhorlze Lhe lnsLlLuLlon ln
CourLs of llrsL lnsLance of whaL are known as ln[uncLlon sulLs Lhe sole ob[ecL of
whlch ls Lo obLaln Lhe lssuance of a flnal ln[uncLlon 1hey also auLhorlze Lhe granLlng
of ln[uncLlons as alders ln ordlnary clvll acLlons We have deflned ln uavesa vs
Arbes (13 hll 8ep 273) an ln[uncLlon Lo be A speclal remedy adopLed ln LhaL
code (AcL 190) from Amerlcan pracLlce and orlglnally borrowed from Lngllsh legal
procedure whlch was Lhere lssued by Lhe auLhorlLy and under Lhe seal of a courL of
equlLy and llmlLed as ln oLher cases where equlLable rellef ls soughL Lo Lhose cases
where Lhere ls no plaln adequaLe and compleLe remedy aL lawwhlch wlll noL be
granLed whlle Lhe rlghLs beLween Lhe parLles are undeLermlned excepL ln
exLraordlnary cases where maLerlal and lrreparable ln[ury wlll be donewhlch
cannoL be compensaLed ln damages
8y paragraph 2 of secLlon 36 of AcL no 136 sopto and Lhe provlslons of Lhe varlous
subsequenL AcLs hereLofore menLloned Lhe lnsular CovernmenL has consenLed Lo
llLlgaLe wlLh aggrleved persons Lhe valldlLy of any orlglnal Lax or lmposL lmposed by
lL on condlLlon LhaL Lhls be done ln ordlnary clvll acLlons afLer Lhe Laxes or exacLlons
shall have been pald 8uL lL ls sald LhaL paragraph 2 confers orlglnal [urlsdlcLlon
upon CourLs of llrsL lnsLance Lo hear and deLermlne all clvll acLlons whlch lnvolve
Lhe valldlLy of any Lax lmposL or assessmenL and LhaL lf Lhe alllncluslve words all
and any be glven Lhelr naLural and unresLrlcLed meanlng no acLlon whereln LhaL
quesLlon ls lnvolved can arlse over whlch such courLs do noL have [urlsdlcLlon
(8arrameda vs Molr 23 hll 8ep 44) 1hls ls Lrue 8uL Lhe Lerm clvll acLlons had
229

lLs well deflned meanlng aL Lhe Llme Lhe paragraph was enacLed 1he same
leglslaLlve body whlch enacLed paragraph 2 on !une 16 1901 had [usL a few
monLhs prlor Lo LhaL Llme deflned Lhe only klnd of acLlon ln whlch Lhe legallLy of
any Lax lmposed by lL mlghL be assalled (Sec 84 AcL 82 enacLed !anuary 31 1901
and sec 17 AcL no 83 enacLed lebruary 6 1901) 1haL klnd of acLlon belng
paymenL of Lhe Lax under proLesL and an ordlnary sulL Lo recover and no oLher
Lhere can be no doubL LhaL CourLs of llrsL lnsLance have [urlsdlcLlon over all such
acLlons 1he subsequenL leglslaLlon on Lhe same sub[ecL shows clearly LhaL Lhe
Commlsslon ln enacLlng paragraph 2 sopto dld noL lnLend Lo change or modlfy ln
any way secLlon 84 of AcL no 82 and secLlon 17 of AcL no 83 buL on Lhe conLrary
lL was lnLended LhaL clvll acLlons menLloned ln sald paragraph should be
undersLood Lo mean ln so far as LesLlng Lhe legallLy of Laxes were concerned only
Lhose of Lhe klnd and characLer provlded for ln Lhe Lwo secLlons above menLloned
lL ls also urged LhaL Lhe power Lo resLraln by ln[uncLlon Lhe collecLlon of Laxes or
lmposLs ls conferred upon CourLs of llrsL lnsLance by paragraph 7 of secLlon 36
sopto 1hls paragraph does empower Lhose courLs Lo granL ln[uncLlons boLh
prellmlnary and flnal ln ooy clvll acLlon pendlng ln Lhelr dlsLrlcLs provlded always
LhaL Lhe complalnL shows facLs enLlLllng Lhe plalnLlff Lo Lhe rellef demanded
ln[uncLlon sulLs such as Lhe one aL bar are clvll acLlons buL of a speclal or
exLraordlnary characLer lL cannoL be sald LhaL Lhe Commlsslon lnLended Lo glve a
broader or dlfferenL meanlng Lo Lhe word acLlon used ln ChapLer 9 of Lhe Code of
Clvll rocedure ln connecLlon wlLh ln[uncLlons Lhan lL gave Lo Lhe same word found
ln paragraph 2 of secLlon 36 of Lhe Crganlc AcL 1he lnsular CovernmenL ln
exerclslng Lhe power conferred upon lL by Lhe Congress of Lhe unlLed SLaLes has
declared LhaL Lhe clLlzens and resldenLs of Lhls counLry shall pay cerLaln speclfled
Laxes and lmposLs 1he power Lo Lax necessarlly carrles wlLh lL Lhe power Lo collecL
Lhe Laxes 1hls belng Lrue Lhe welghL of auLhorlLy supporLs Lhe proposlLlon LhaL Lhe
CovernmenL may flx Lhe condlLlons upon whlch lL wlll consenL Lo llLlgaLe Lhe valldlLy
of lLs orlglnal Laxes (1ennessee vs Sneed 96 uS 69)
We musL Lherefore conclude LhaL paragraph 2 and 7 of secLlon 36 of AcL no 136
consLrued ln Lhe llghL of Lhe prlor and subsequenL leglslaLlon Lo whlch we have
referred and Lhe leglslaLlve and [udlclal hlsLory of Lhe same sub[ecL ln Lhe unlLed
SLaLes wlLh whlch Lhe Commlsslon was famlllar do noL empower CourLs of flrs
lnsLance Lo lnLerfere by ln[uncLlon wlLh Lhe collecLlon of Lhe Laxes ln quesLlon ln Lhls
case1owpblloet
lf we are ln error as Lo Lhe scope of paragraph 2 and 7 sopto and Lhe Commlsslon
dld lnLend Lo confer Lhe power upon Lhe courLs Lo resLraln Lhe collecLlon of Laxes lL
does noL necessarlly follow LhaL Lhls power or [urlsdlcLlon has been Laken away by
secLlon 139 of AcL no 2339 for Lhe reason LhaL all agree LhaL an ln[uncLlon wlll noL
lssue ln any case lf Lhere ls an adequaLe remedy aL law 1he very naLure of Lhe wrlL
lLself prevenLs lLs lssuance under such clrcumsLances LeglslaLlon forblddlng Lhe
lssulng of ln[uncLlons ln such cases ls unnecessary So Lhe only quesLlon Lo be here
deLermlned ls wheLher Lhe remedy provlded for ln secLlon 140 of AcL no 2339 ls
adequaLe lf lL ls Lhe wrlLs whlch form Lhe basls of Lhls appeal should noL have been
lssued lf Lhls ls Lhe correcL vlew Lhe auLhorlLy Lo lssue ln[uncLlons wlll noL have
been Laken away by secLlon 139 buL rendered lnoperaLlve only by reason of an
adequaLe remedy havlng been made avallable
1he leglslaLlve body of Lhe hlllpplne lslands has declared from Lhe beglnnlng (AcL
no 82) LhaL paymenL under proLesL and sulL Lo recover ls an adequaLe remedy Lo
LesL Lhe legallLy of any Lax or lmposL and LhaL Lhls remedy ls excluslve Can we say
LhaL Lhe remedy ls noL adequaLe or LhaL lL ls noL excluslve or boLh? 1he plalnLlffs ln
Lhe case aL bar are Lhe flrsL ln so far as we are aware Lo quesLlon elLher Lhe
adequacy or excluslveness of Lhls remedy We wlll refer Lo a few cases ln Lhe unlLed
SLaLes where sLaLuLes slmllar Lo secLlons 139 and 140 have been consLrued and
applled
ln May 1874 one 8loomsLeln presenLed a peLlLlon Lo Lhe clrculL courL slLLlng ln
nashvllle 1ennessee sLaLlng LhaL hls real and personal properLy had been assessed
for sLaLe Laxes ln Lhe year 1872 Lo Lhe amounL of $13260 LhaL he Lendered Lo Lhe
collecLor Lhls amounL ln funds recelvable by law for such purposes and LhaL Lhe
collecLor refused Lo recelve Lhe same Pe prayed for an alLernaLlve wrlL of
mooJomos Lo compel Lhe collecLor Lo recelve Lhe bllls ln paymenL for such Laxes or
Lo show cause Lo Lhe conLrary 1o Lhls peLlLlon Lhe collecLor ln hls answer seL up
Lhe defense LhaL Lhe peLlLloners sulL was expressly prohlblLed by Lhe AcL of Lhe
Ceneral Assembly of Lhe SLaLe of 1ennessee passed ln 1873 1he peLlLlon was
dlsmlssed and Lhe rellef prayed for refused An appeal Lo Lhe supreme courL of Lhe
SLaLe resulLed ln Lhe afflrmance of Lhe [udgmenL of Lhe lower courL 1he case was
Lhen carrled Lo Lhe Supreme CourL of Lhe unlLed SLaLes (1ennessee vs Sneed 96 u
S 69) where Lhe [udgmenL was agaln afflrmed
1he Lwo secLlons of Lhe AcL of March 21 1873 drawn ln quesLlon ln LhaL cases
read as follows
1 1haL ln all cases ln whlch an offlcer charged by law wlLh Lhe collecLlon of revenue
due Lhe SLaLe shall lnsLlLuLe any proceedlng or Lake any sLeps for Lhe collecLlon of
Lhe same alleged or clalmed Lo be due by sald offlcer from any clLlzen Lhe parLy
agalnsL whom Lhe proceedlng or sLep ls Laken shall lf he concelves Lhe same Lo be
un[usL or lllegal or agalnsL any sLaLuLe or clause of Lhe ConsLlLuLlon of Lhe SLaLe pay
Lhe same under proLesL and upon hls maklng sald paymenL Lhe offlcer or collecLor
shall pay such revenue lnLo Lhe SLaLe 1reasury glvlng noLlce aL Lhe Llme of paymenL
Lo Lhe CompLroller LhaL Lhe same was pald under proLesL and Lhe parLy paylng sald
revenue may aL any Llme wlLhln LhlrLy days afLer maklng sald paymenL and noL
longer LhereafLer sue Lhe sald offlcer havlng collecLed sald sum for Lhe recovery
Lhereof And Lhe same may be Lrled ln any courL havlng Lhe [urlsdlcLlon of Lhe
amounL and parLles and lf lL be deLermlned LhaL Lhe same was wrongfully
collecLed as noL belng due from sald parLy Lo Lhe SLaLe for any reason golng Lo Lhe
merlLs of Lhe same Lhen Lhe courL Lrylng Lhe case may cerLlfy of record LhaL Lhe
230

same was wrongfully pald and oughL Lo be refunded and Lhereupon Lhe
CompLroller shall lssue hls warranL for Lhe same whlch shall be pald ln preference
Lo oLher clalms on Lhe 1reasury
2 1haL Lhere shall be no oLher remedy ln any case of Lhe collecLlon of revenue or
aLLempL Lo collecL revenue lllegally or aLLempL Lo collecL revenue ln funds only
recelvable by sald offlcer under Lhe law Lhe same belng oLher or dlfferenL funds
Lhan such as Lhe Lax payer may Lender or clalm Lhe rlghL Lo pay Lhan LhaL above
provlded and no wrlL for Lhe prevenLlon of Lhe collecLlon of any revenue clalmed
or Lo hlnder or delay Lhe collecLlon of Lhe same shall ln anywlse lssue elLher
ln[uncLlon supersedeas prohlblLlon or any oLher wrlL or process whaLever buL ln
all cases ln whlch for any reason any person shall clalm LhaL Lhe Lax so collecLed
was wrongfully or lllegally collecLed Lhe remedy for sald parLy shall be as above
provlded and ln no oLher manner
ln dlscusslng Lhe adequacy of Lhe remedy provlded by Lhe 1ennessee LeglslaLure as
above seL forLh Lhe Supreme CourL of Lhe unlLed SLaLes ln Lhe case [usL clLed sald
1hls remedy ls slmple and effecLlve A sulL aL law Lo recover money unlawfully
exacLed ls as speedy as easlly Lrled and less compllcaLed Lhan a proceedlng by
mooJomos ln revenue cases wheLher arlslng upon lLs (unlLed SLaLes) lnLernal
8evenue Laws or Lhose provldlng for Lhe collecLlon of duLles upon forelgn lmporLs
lL (unlLed SLaLes) adopLs Lhe rule prescrlbed by Lhe SLaLe of 1ennessee lL requlres
Lhe conLesLanL Lo pay Lhe amounL as flxed by Lhe CovernmenL and glves hlm power
Lo sue Lhe collecLor and ln such sulL Lo LesL Lhe legallLy of Lhe Lax 1here ls noLhlng
lllegal or even harsh ln Lhls lL ls a wlse and reasonable precauLlon for Lhe securlLy of
Lhe CovernmenL
1homas C laLL commenced an acLlon ln Lhe ClrculL CourL of Lhe unlLed SLaLes for
Lhe LasLern ulsLrlcL of 1ennessee Lo resLraln Lhe collecLlon of a llcense Lax from Lhe
company whlch he represenLed 1he defense was LhaL secLlons 1 and 2 of Lhe AcL of
1873 sopto prohlblLed Lhe brlnglng of LhaL sulL 1hls case also reached Lhe
Supreme CourL of Lhe unlLed SLaLes (ShelLon vs laLL 139 u 391) ln speaklng of
Lhe lnhlblLory provlslons of secLlons 1 and 2 of Lhe AcL of 1873 Lhe courL sald 1hls
AcL has been sancLloned and applled by Lhe CourLs of 1ennessee (nashvllle vs
SmlLh 86 1enn 213 Loulsvllle n 8 Co vs SLaLe 8 Pelsk 663 804) lL ls as
counsel observe slmllar Lo Lhe AcL of Congress forblddlng sulL for Lhe purpose of
resLralnlng Lhe assessmenL or collecLlon of Laxes under Lhe lnLernal 8evenue Laws
ln respecL Lo whlch Lhls courL held LhaL Lhe remedy by sulL Lo recover back Lhe Lax
afLer paymenL provlded for by Lhe SLaLuLe was excluslve (Snyder vs Marks of Lhls
characLer has been called for by Lhe embarrassmenLs resulLlng from Lhe
lmprovldenL employmenL of Lhe wrlL of ln[uncLlon ln arresLlng Lhe collecLlon of Lhe
publlc revenue and even ln lLs absence Lhe sLrong arm of Lhe courL of chancery
oughL noL Lo be lnLerposed ln LhaL dlrecLlon excepL where resorL Lo LhaL courL ls
grounded upon Lhe seLLled prlnclples whlch govern lLs [urlsdlcLlon
ln Loulsvllle n8 Co vs SLaLe (8 Pelsk 64 1enn 663 804) clLed by Lhe
Supreme CourL of Lhe unlLed SLaLes ln ShelLon vs laLL sopto Lhe courL sald lL
was urged LhaL Lhls sLaLuLe (secLlons 1 and 2 of Lhe AcL of 1873 sopto) ls
unconsLlLuLlonal and vold as lL deprlves Lhe clLlzen of Lhe remedy by cettlototl
guaranLeed by Lhe organlc law
8y Lhe 10Lh secLlon of Lhe slxLh arLlcle of Lhe ConsLlLuLlon 1ennessee lL ls provlded
LhaL 1he [udges or [usLlces of lnferlor courLs of law and equlLy shall have power ln
all clvll cases Lo lssue wrlLs of cettlototl Lo remove any cause or Lhe LranscrlpL of
Lhe record Lhereof from any lnferlor [urlsdlcLlon lnLo such courL of law on sufflclenL
cause supporLed by oaLh or afflrmaLlon
1he courL held Lhe acL valld as noL belng ln confllcL wlLh Lhese provlslons of Lhe
SLaLe consLlLuLlon
ln Lddy vs 1he 1ownshlp of Lee (73 Mlch 123) Lhe complalnanLs soughL Lo en[oln
Lhe collecLlon of cerLaln Laxes for Lhe year 1886 1he defendanLs ln supporL of Lhelr
demurrer lnslsLed LhaL Lhe remedy by ln[uncLlon had been Laken away by secLlon
107 of Lhe AcL of 1883 whlch secLlon reads as follows no ln[uncLlon shall lssue Lo
sLay proceedlngs for Lhe assessmenL or collecLlon of Laxes under Lhls AcL
lL was clalmed by Lhe complalnanLs LhaL Lhe above quoLed provlslons of Lhe AcL of
1883 were unconsLlLuLlonal and vold as belng ln confllcL wlLh arLlcle 6 sec 8 of Lhe
ConsLlLuLlon whlch provldes LhaL 1he clrculL courLs shall have orlglnal [urlsdlcLlon
ln all maLLers clvll and crlmlnal noL excepLed ln Lhls ConsLlLuLlon and noL
prohlblLed by law 1hey shall also have power Lo lssue wrlLs of bobeos cotpos
mooJomos ln[uncLlon poo wottooto cettlototl and oLher wrlLs necessary Lo carry
lnLo effecL Lhelr orders [udgmenLs and decrees
Mr !usLlce Champlln speaklng for Lhe courL sald l have no doubL LhaL Lhe
LeglslaLure has Lhe consLlLuLlonal auLhorlLy where lL has provlded a plaln
adequaLe and compleLe remedy aL law Lo recover back Laxes lllegally assessed and
collecLed Lo Lake away Lhe remedy by ln[uncLlon Lo resLraln Lhelr collecLlon
SecLlon 9 of Lhe hlllpplne 8lll reads ln parL as follows 1haL Lhe Supreme CourL and
Lhe CourLs of llrsL lnsLance of Lhe hlllpplne lslands shall possess and exerclse
[urlsdlcLlon as hereLofore provlded and such addlLlonal [urlsdlcLlon as shall
hereafLer be prescrlbed by Lhe CovernmenL of sald lslands sub[ecL Lo Lhe power of
sald CovernmenL Lo change Lhe pracLlce and meLhod of procedure
lL wlll be seen LhaL Lhls secLlon has noL Laken away from Lhe hlllpplne CovernmenL
Lhe power Lo change Lhe pracLlce and meLhod of procedure lf secLlons 139 and
140 consldered LogeLher and Lhls musL always be done are noLhlng more Lhan a
mode of procedure Lhen lL would seem LhaL Lhe LeglslaLure dld noL exceed lLs
consLlLuLlonal auLhorlLy ln enacLlng Lhem Concedlng for Lhe momenL LhaL Lhe duly
auLhorlzed procedure for Lhe deLermlnaLlon of Lhe valldlLy of any Lax lmposL or
assessmenL was by ln[uncLlon sulLs and LhaL Lhls meLhod was avallable Lo aggrleved
Laxpayers prlor Lo Lhe passage of AcL no 2339 may Lhe LeglslaLure change Lhls
meLhod of procedure? 1haL Lhe LeglslaLure has Lhe power Lo do Lhls Lhere can be
231

no doubL provlded some oLher adequaLe remedy ls subsLlLuLed ln lleu Lhereof ln
speaklng of Lhe modes of enforclng rlghLs creaLed by conLracLs Lhe Supreme CourL
of Lhe unlLed SLaLes ln 1ennessee vs Sneed sopto sald 1he rule seems Lo be LhaL
ln modes of proceedlngs and of forms Lo enforce Lhe conLracL Lhe LeglslaLure has
Lhe conLrol and may enlarge llmlL or alLer Lhem provlded LhaL lL does noL deny a
remedy or so embarrass lL wlLh condlLlons and resLrlcLlons as serlously Lo lmpalr
Lhe value of Lhe rlghL
ln LhaL case Lhe peLlLloner urged LhaL Lhe AcLs of 1873 were laws lmpalrlng Lhe
obllgaLlon of Lhe conLracL conLalned ln Lhe charLer of Lhe 8ank of 1ennessee whlch
conLracL was enLered lnLo wlLh Lhe SLaLe ln 1838 lL was clalmed LhaL Lhls was done
by placlng such lmpedlmenLs and obsLrucLlons ln Lhe way of lLs enforcemenL
Lhereby so lmpalrlng Lhe remedles as pracLlcally Lo render Lhe obllgaLlon of no
value ln dlsposlng of Lhls conLenLlon Lhe courL sald lf we assume LhaL prlor Lo
1873 Lhe relaLor had auLhorlLy Lo prosecuLe hls clalm agalnsL Lhe SLaLe by
mooJomos and LhaL by Lhe sLaLuLes of LhaL year Lhe furLher use of LhaL form was
prohlblLed Lo hlm Lhe quesLlon remalns wheLher an effecLual remedy was lefL Lo
hlm or provlded for hlm We Lhlnk Lhe regulaLlon of Lhe sLaLuLe gave hlm an
abundanL means of enforclng such rlghL as he possessed lL provlded LhaL he mlghL
pay hls clalm Lo Lhe collecLor under proLesL glvlng noLlce Lhereof Lo Lhe CompLroller
of Lhe 1reasury LhaL aL any Llme wlLhln LhlrLy days LhereafLer he mlghL sue Lhe
offlcer maklng Lhe collecLlon LhaL Lhe case should be Lrled by any courL havlng
[urlsdlcLlon and lf found ln favor of Lhe plalnLlff on Lhe merlLs Lhe courL should
cerLlfy LhaL Lhe same was wrongfully pald and oughL Lo be refunded and Lhe
CompLroller should Lhereupon lssue hls warranL Lherefor whlch should be pald ln
preference Lo oLher clalm on Lhe 1reasury
8uL greaL sLress ls lald upon Lhe facL LhaL Lhe plalnLlffs ln Lhe case under
conslderaLlon are unable Lo pay Lhe Laxes assessed agalnsL Lhem and LhaL lf Lhe law
ls enforced Lhey wlll be compelled Lo suspend buslness 1hls polnL may be besL
answered by quoLlng from Lhe case of ?oungblood vs SexLon (32 Mlch 406)
whereln !udge Cooley speaklng for Lhe courL sald 8uL lf Lhls conslderaLlon ls
sufflclenL Lo [usLlfy Lhe Lransfer of a conLroversy from a courL of law Lo a courL of
equlLy Lhen every conLroversy where money ls demanded may be made Lhe
sub[ecL of equlLable cognlzance 1o enforce agalnsL a dealer a promlssory noLe may
ln some cases as effecLually break up hls buslness as Lo collecL from hlm a Lax of
equal amounL 1hls ls noL whaL ls known Lo Lhe law as lrreparable ln[ury 1he courLs
have never recognlzed Lhe consequences of Lhe mere enforcemenL of a money
demand as falllng wlLhln LhaL caLegory
CerLaln speclfled secLlons of AcL no 2339 were amended by AcL no 2432 enacLed
uecember 23 1914 effecLlve !anuary 1 1913 by lmposlng lncreased and addlLlonal
Laxes AcL no 2432 was amended were raLlfled by Lhe Congress of Lhe unlLed
SLaLes on March 4 1913 1he opposlLlon manlfesLed agalnsL Lhe Laxes lmposed by
AcLs nos 2339 and 2432 ls a maLLer of local hlsLory A greaL many buslness men
LhoughL Lhe Laxes Lhus lmposed were Loo hlgh lf Lhe collecLlon of Lhe new Laxes on
slgns slgnboards and blllboards may be resLralned we see no wellfounded reason
why ln[uncLlons cannoL be granLed resLralnlng Lhe collecLlon of all or aL leasL a
number of Lhe oLher lncreased Laxes 1he facL LhaL Lhls may be done shows Lhe
wlsdom of Lhe LeglslaLure ln denylng Lhe use of Lhe wrlL of ln[uncLlon Lo resLraln Lhe
collecLlon of any Lax lmposed by Lhe AcLs When Lhls was done an equlLable
remedy was made avallable Lo all dlssaLlsfled Laxpayers
1he quesLlon now arlses wheLher Lhe case belng one of whlch Lhe courL below had
no [urlsdlcLlon Lhls courL on appeal shall proceed Lo express an oplnlon upon Lhe
valldlLy of provlslons of subsecLlon (b) of secLlon 100 of AcL no 2339 lmposlng Lhe
Laxes complalned of As a general rule an oplnlon on Lhe merlLs of a conLroversy
oughL Lo be decllned when Lhe courL ls powerless Lo glve Lhe rellef demanded 8uL
lL ls clalmed LhaL Lhls case ls ln many parLlculars excepLlonal lL ls Lrue LhaL lL has
been argued on Lhe merlLs and Lhere ls no reason for any suggesLlon or susplclon
LhaL lL ls noL a bona flde conLroversy 1he legal polnLs lnvolved ln Lhe merlLs have
been presenLed wlLh force clearness and greaL ablllLy by Lhe learned counsel of
boLh sldes lf Lhe law assalled were sLlll ln force we would feel LhaL an oplnlon on
lLs valldlLy would be [usLlflable buL as Lhe amendmenL became effecLlve on !anuary
1 1913 we Lhlnk lL advlsable Lo proceed no furLher wlLh Lhls branch of Lhe case
1he nexL quesLlon arlses ln connecLlon wlLh Lhe supplemenLary complalnL Lhe
ob[ecL of whlch ls Lo en[oln Lhe CollecLor of lnLernal 8evenue from removlng cerLaln
blllboards Lhe properLy of Lhe plalnLlffs locaLed upon prlvaLe lands ln Lhe rovlnce
of 8lzal 1he plalnLlffs allege LhaL Lhe blllboards here ln quesLlon ln no sense
consLlLuLe a nulsance and are noL deleLerlous Lo Lhe healLh morals or general
welfare of Lhe communlLy or of any persons 1he defendanL denles Lhese
allegaLlons ln hls answer and clalms LhaL afLer due lnvesLlgaLlon made upon Lhe
complalnLs of Lhe 8rlLlsh and Cerman Consuls he declded LhaL Lhe blllboard
complalned of was and sLlll ls offenslve Lo Lhe slghL and ls oLherwlse a nulsance
1he plalnLlffs proved by Mr Churchlll LhaL Lhe blllboards were qulLe a dlsLance
from Lhe road and LhaL Lhey were sLrongly bullL noL dangerous Lo Lhe safeLy of Lhe
people and conLalned no adverLlslng maLLer whlch ls fllLhy lndecenL or deleLerlous
Lo Lhe morals of Lhe communlLy 1he defendanL presenLed no LesLlmony upon Lhls
polnL ln Lhe agreed sLaLemenL of facLs submlLLed by Lhe parLles Lhe plalnLlffs
admlL LhaL Lhe blllboards menLloned were and sLlll are offenslve Lo Lhe slghL
1he perLlnenL provlslons of subsecLlon (b) of secLlon 100 of AcL no 2339 read lf
afLer due lnvesLlgaLlon Lhe CollecLor of lnLernal 8evenue shall declde LhaL any slgn
slgnboard or blllboard dlsplayed or exposed Lo publlc vlew ls offenslve Lo Lhe slghL
or ls oLherwlse a nulsance he may by summary order dlrecL Lhe removal of such
slgn slgnboard or blllboard and lf same ls noL removed wlLhln Len days afLer he
has lssued such order he my hlmself cause lLs removal and Lhe slgn slgnboard or
blllboard shall Lhereupon be forfelLed Lo Lhe CovernmenL and Lhe owner Lhereof
charged wlLh Lhe expenses of Lhe removal so effecLed When Lhe slgn slgnboard or
232

blllboard ordered Lo be removed as hereln provlded shall noL comply wlLh Lhe
provlslons of Lhe general regulaLlons of Lhe CollecLor of lnLernal 8evenue no rebaLe
or refund shall be allowed for any porLlon of a year for whlch Lhe Lax may have
been pald CLherwlse Lhe CollecLor of lnLernal 8evenue may ln hls dlscreLlon make
a proporLlonaLe refund of Lhe Lax for Lhe porLlon of Lhe year remalnlng for whlch
Lhe Laxes were pald An appeal may be had from Lhe order of Lhe CollecLor of
lnLernal 8evenue Lo Lhe SecreLary of llnance and !usLlce whose declslon Lhereon
shall be flnal
1he ALLorneyCeneral on behalf of Lhe defendanL says 1he quesLlon whlch Lhe
case presenLs under Lhls head for deLermlnaLlon resolves lLself lnLo Lhls lnqulry ls
Lhe suppresslon of adverLlslng slgns dlsplayed or exposed Lo publlc vlew whlch are
admlLLedly offenslve Lo Lhe slghL conduclve Lo Lhe publlc lnLeresL?
And cunsel for Lhe plalnLlffs sLaLes Lhe quesLlon Lhus We conLend LhaL LhaL porLlon
of secLlon 100 of AcL no 2339 empowerlng Lhe CollecLor of lnLernal 8evenue Lo
remove blllboards as nulsances lf ob[ecLlonable Lo Lhe slghL ls unconsLlLuLlonal as
consLlLuLlng a deprlvaLlon of properLy wltboot Joe ptocess of low
lrom Lhe poslLlon Laken by counsel for boLh sldes lL ls clear LhaL our lnqulry ls
llmlLed Lo Lhe quesLlon wheLher Lhe enacLmenL assalled by Lhe plalnLlffs was a
leglLlmaLe exerclse of Lhe pollce power of Lhe CovernmenL for all properLy ls held
sub[ecL Lo LhaL power
As a consequence of Lhe foregolng all dlscusslon and auLhorlLles clLed whlch go Lo
Lhe power of Lhe sLaLe Lo auLhorlze admlnlsLraLlve offlcers Lo flnd as a facL LhaL
leglLlmaLe Lrades calllngs and buslnesses are under cerLaln clrcumsLances
sLaLuLory nulsances and wheLher Lhe procedure prescrlbed for Lhls purpose ls due
process of law are forelgn Lo Lhe lssue here presenLed
1here can be no doubL LhaL Lhe exerclse of Lhe pollce power of Lhe hlllpplne
CovernmenL belongs Lo Lhe LeglslaLure and LhaL Lhls power ls llmlLed only by Lhe
AcLs of Congress and Lhose fundamenLals prlnclples whlch lle aL Lhe foundaLlon of
all republlcan forms of governmenL An AcL of Lhe LeglslaLure whlch ls obvlously and
undoubLedly forelgn Lo any of Lhe purposes of Lhe pollce power and lnLerferes wlLh
Lhe ordlnary en[oymenL of properLy would wlLhouL doubL be held Lo be lnvalld 8uL
where Lhe AcL ls reasonably wlLhln a proper conslderaLlon of and care for Lhe publlc
healLh safeLy or comforL lL should noL be dlsLurbed by Lhe courLs 1he courLs
cannoL subsLlLuLe Lhelr own vlews for whaL ls proper ln Lhe premlses for Lhose of
Lhe LeglslaLure ln Munn vs llllnols (94 uS 113) Lhe unlLed SLaLes Supreme CourL
sLaLes Lhe rule Lhus lf no sLaLe of clrcumsLances could exlsL Lo [usLlfy such sLaLuLe
Lhen we may declare Lhls one vold because ln excess of Lhe leglslaLlve power of Lhls
sLaLe buL lf lL could we musL presume lL dld Cf Lhe proprleLy of leglslaLlve
lnLerference wlLhln Lhe scope of Lhe leglslaLlve power a leglslaLure ls Lhe excluslve
[udge
1hls rule very fully dlscussed and declared ln owell vs ennsylvanla (127 uS 678)
oleomargarlne case (See also Crowley vs ChrlsLensen 137 uS 86 87
Camfleld vs uS 167 uS 318) Whlle Lhe sLaLe may lnLerfere wherever Lhe publlc
lnLeresLs demand lL and ln Lhls parLlcular a large dlscreLlon ls necessarlly vesLed ln
Lhe leglslaLure Lo deLermlne noL only whaL Lhe lnLeresL of Lhe publlc requlre buL
whaL measures are necessary for Lhe proLecLlon of such lnLeresLs yeL lLs
deLermlnaLlon ln Lhese maLLers ls noL flnal or concluslve buL ls sub[ecL Lo Lhe
supervlslon of Lhe courLs (LawLon vs SLeele 132 uS 133) Can lL be sald [udlclally
LhaL slgns slgnboards and blllboards whlch are admlLLedly offenslve Lo Lhe slghL
are noL wlLh Lhe caLegory of Lhlngs whlch lnLerfere wlLh Lhe publlc safeLy welfare
and comforL and Lherefore beyond Lhe reach of Lhe pollce power of Lhe hlllpplne
CovernmenL?
1he numerous aLLempLs whlch have been made Lo llmlL by deflnlLlon Lhe scope of
Lhe pollce power are only lnLeresLlng as lllusLraLlng lLs rapld exLenslon wlLhln
comparaLlvely recenL years Lo polnLs hereLofore deemed enLlrely wlLhln Lhe fleld of
prlvaLe llberLy and properLy rlghLs 8lacksLones deflnlLlon of Lhe pollce power was
as follows 1he due regulaLlon and domesLlc order of Lhe klngdom whereby Lhe
lndlvlduals of Lhe sLaLe llke members of a well governed famlly are bound Lo
conform Lhelr general behavlor Lo Lhe rules of proprleLy good nelgborhood and
good manners Lo be decenL lndusLrlous and lnoffenslve ln Lhelr respecLlve
sLaLlons (CommenLarles vol 4 p 162)
Chanceller kenL consldered Lhe pollce power Lhe auLhorlLy of Lhe sLaLe Lo regulaLe
unwholesome Lrades slaughLer houses operaLlons offenslve Lo Lhe senses Chlef
!usLlce Shaw of MassachuseLLs deflned lL as follows 1he power vesLed ln Lhe
leglslaLure by Lhe consLlLuLlon Lo make ordaln and esLabllsh all manner of
wholesome and reasonable laws sLaLuLes and ordlnances elLher wlLh penalLles or
wlLhouL noL repugnanL Lo Lhe consLlLuLlon as Lhey shall [udge Lo be for Lhe good
and welfare of Lhe commonwealLh and of Lhe sub[ecLs of Lhe same (Com vs
Alger 7 Cush 33)
ln Lhe case of 8uLchers unlon SlaughLerhouse eLc Co vs CrescenL ClLy Llve SLock
Landlng eLc Co (111 uS 746) lL was suggesLed LhaL Lhe publlc healLh and publlc
morals are maLLers of leglslaLlve concern of whlch Lhe leglslaLure cannoL dlvesL
lLself (See SLaLe vs MounLaln 1lmber Co 1913 73 Wash 381 where Lhese
deflnlLlons are collaLed)
ln Champer vs CreencasLle (138 lnd 339) lL was sald 1he pollce power of Lhe
SLaLe so far has noL recelved a full and compleLe deflnlLlon lL may be sald
however Lo be Lhe rlghL of Lhe SLaLe or sLaLe funcLlonary Lo prescrlbe regulaLlons
for Lhe good order peace healLh proLecLlon comforL convenlence and morals of
Lhe communlLy whlch do noL vlolaLe any of Lhe provlslons of Lhe organlc law
(CuoLed wlLh approval ln Popklns vs 8lchmond va 1913 86 SL 139)
ln Com vs lymouLh Coal Co (1911 232 a 141) lL was sald 1he pollce power
of Lhe sLaLe ls dlfflculL of deflnlLlon buL lL has been held by Lhe courLs Lo be Lhe
rlghL Lo prescrlbe regulaLlons for Lhe good order peace healLh proLecLlon
comforL convenlence and morals of Lhe communlLy whlch does noL encroach on a
233

llke power vesLed ln congress or sLaLe leglslaLures by Lhe federal consLlLuLlon or
does noL vlolaLe Lhe provlslons of Lhe organlc law and lL has been expressly held
LhaL Lhe fourLeenLh amendmenL Lo Lhe federal consLlLuLlon was noL deslgned Lo
lnLerfere wlLh Lhe exerclse of LhaL power by Lhe sLaLe
ln eople vs 8razee (Mlch 1914 149 nW 1033) lL was sald lL Lhe pollce
power has for lLs ob[ecL Lhe lmprovemenL of soclal and economlc condlLloned
affecLlng Lhe communlLy aL large and collecLlvely wlLh a vlew Lo brlng abouL he
greaLesL good of Lhe greaLesL numberCourLs have conslsLenLly and wlsely decllned
Lo seL any flxed llmlLaLlons upon sub[ecLs calllng for Lhe exerclse of Lhls power lL ls
elasLlc and ls exerclsed from Llme Lo Llme as varylng soclal condlLlons demand
correcLlon
ln 8 Cyc 863 lL ls sald ollce power ls Lhe name glven Lo LhaL lnherenL
soverelgnLy whlch lL ls Lhe rlghL and duLy of Lhe governmenL or lLs agenLs Lo
exerclse whenever publlc pollcy ln a broad sense demands for Lhe beneflL of
socleLy aL large regulaLlons Lo guard lLs morals safeLy healLh order or Lo lnsure ln
any respecL such economlc condlLlons as an advanclng clvlllzaLlon of a hlgh complex
characLer requlres (As quoLed wlLh approval ln SLeLLler vs CPara 1914 69 Cre
319)
llnally Lhe Supreme CourL of Lhe unlLed SLaLes has sald ln noble SLaLe 8ank vs
Paskell (219 uS 1911 373 lL may be sald ln a general way LhaL Lhe pollce power
exLends Lo all Lhe greaL publlc needs lL may be puL forLh ln ald of whaL ls
sancLloned by usage or held by Lhe prevalllng morallLy or sLrong and preponderanL
oplnlon Lo be greaLly and lmmedlaLely necessary Lo Lhe publlc welfare
1hls sLaLemenL recenL as lL ls has been quoLed wlLh approval by several courLs
(Cunnlngham vs norLhwesLern lmp Co 1911 44 MonL 180 SLaLe vs MounLaln
1lmber Co 1913 73 Wash 381 Mcuavld vs 8ank of 8ay MlneLLe Ala 1913 69
Sou 432 Popklns vs ClLy of 8lchmond va 1913 86 SL 139 SLaLe vs hlllpps
Mlss 1913 67 Sou 631)
lL was sald ln Com vs Alger (7 Cush 33 83) per Shaw C! LhaL lL ls much easler
Lo percelve and reallze Lhe exlsLence and sources of Lhls pollce power Lhan Lo mark
lLs boundarles or Lo prescrlbe llmlLs Lo lLs exerclse ln SLone vs Mlsslsslppl (101
uS 814) lL was sald Many aLLempLs have been made ln Lhls courL and elsewhere
Lo deflne Lhe pollce power buL never wlLh enLlre success lL ls always easler Lo
deLermlne wheLher a parLlcular case comes wlLhln Lhe general scope of Lhe power
Lhan Lo glve an absLracL deflnlLlon of Lhe power lLself whlch wlll be ln all respecLs
accuraLe
CLher courLs have held Lhe same vow of efforLs Lo evolve a saLlsfacLory deflnlLlon of
Lhe pollce power ManlfesLly deflnlLlons whlch fall Lo anLlclpaLe cases properly
wlLhln Lhe scope of Lhe pollce power are deflclenL lL ls necessary Lherefore Lo
conflne our dlscusslon Lo Lhe prlnclple lnvolved and deLermlne wheLher Lhe cases as
Lhey come up are wlLhln LhaL prlnclple 1he baslc ldea of clvll pollLy ln Lhe unlLed
SLaLes ls LhaL governmenL should lnLerfere wlLh lndlvldual efforL only Lo Lhe exLenL
necessary Lo preserve a healLhy soclal and economlc condlLlon of Lhe counLry SLaLe
lnLerference wlLh Lhe use of prlvaLe properLy may be exerclsed ln Lhree ways llrsL
Lhrough Lhe power of LaxaLlon second Lhrough Lhe power of emlnenL domaln and
Lhlrd Lhrough Lhe pollce power 8uy Lhe flrsL meLhod lL ls assumed LhaL Lhe
lndlvldual recelves Lhe equlvalenL of Lhe Lax ln Lhe form of proLecLlon and beneflL
he recelves from Lhe governmenL as such 8y Lhe second meLhod he recelves Lhe
markeL value of Lhe properLy Laken from hlm 8uL under Lhe Lhlrd meLhod Lhe
beneflLs he derlved are only such as may arlse from Lhe malnLenance of a healLhy
economlc sLandard of socleLy and ls ofLen referred Lo as Jomoom obspoe lojotlo
(Com vs lymouLh Coal Co 232 a 141 8emls vs Culrl uralnage Co 182 lnd
36) 1here was a Llme when sLaLe lnLerference wlLh Lhe use of prlvaLe properLy
under Lhe gulse of Lhe pollce power was pracLlcally conflned Lo Lhe suppresslon of
common nulsances AL Lhe presenL day however lndusLry ls organlzed along llnes
whlch make lL posslble for large comblnaLlons of caplLal Lo proflL aL Lhe expense of
Lhe socloeconomlc progress of Lhe naLlon by conLrolllng prlces and dlcLaLlng Lo
lndusLrlal workers wages and condlLlons of labor noL only Lhls buL Lhe unlversal use
of mechanlcal conLrlvances by producers and common carrlers has enormously
lncreased Lhe Loll of human llfe and llmb ln Lhe producLlon and dlsLrlbuLlon of
consumpLlon goods 1o Lhe exLenL LhaL Lhese buslnesses affecL noL only Lhe publlc
healLh safeLy and morals buL also Lhe general soclal and economlc llfe of Lhe
naLlon lL has been and wlll conLlnue Lo be necessary for Lhe sLaLe Lo lnLerfere by
regulaLlon 8y so dolng lL ls Lrue LhaL Lhe en[oymenL of prlvaLe properLy ls
lnLerfered wlLh ln no small degree and ln ways LhaL would have been consldered
enLlrely unnecessary ln years gone by 1he regulaLlon of raLes charged by common
carrlers for lnsLance or Lhe llmlLaLlon of hours of work ln lndusLrlal esLabllshmenLs
have only a very lndlrecL bearlng upon Lhe publlc healLh safeLy and morals buL do
bear dlrecLly upon soclal and economlc condlLlons 1o permlL each lndlvldual unlL of
socleLy Lo feel LhaL hls lndusLry wlll brlng a falr reLurn Lo see LhaL hls work shall be
done under condlLlons LhaL wlll noL elLher lmmedlaLely or evenLually ruln hls healLh
Lo prevenL Lhe arLlflclal lnflaLlon of prlces of Lhe Lhlngs whlch are necessary for hls
physlcal well belng are maLLers whlch Lhe lndlvldual ls no longer capable of
aLLendlng Lo hlmself lL ls wlLhln Lhe provlnce of Lhe pollce power Lo render
asslsLance Lo Lhe people Lo Lhe exLenL LhaL may be necessary Lo safeguard Lhese
rlghLs Pence laws provldlng for Lhe regulaLlon of wages and hours of labor of coal
mlners (8all 8lver Coal Co vs 1aylor 234 uS 224) requlrlng paymenL of
employees of rallroads and oLher lndusLrlal concerns ln legal Lender and requlrlng
salarles Lo be pald semlmonLhly (Lrle 88 Co vs Wllllams 233 uS 683) provldlng
a maxlmum number of hours of labor for women (Mlller vs Wllson uS Sup CL
leb 23 1913 Adv Cpns p 342) prohlblLlng chlld labor (SLurges 8urn vs
8eauchamp 231 uS 320) resLrlcLlng Lhe hours of labor ln publlc laundrles (ln re
Wong Wlng 167 Cal 109) llmlLlng hours of labor ln lndusLrlal esLabllshmenL
generally (SLaLe vs 8unLlng 71 Cre 239) Sunday Closlng Laws (SLaLe vs nlcholls
234

Cre 1913 131 ac 473 eople vs C kllnck acklng Co n? 1913 108 n L
278 Plller vs SLaLe Md 1914 92 ALl 842 SLaLe vs enny 42 MonL 118 ClLy of
Sprlngfleld vs 8lchLer 237 lll 378 380 SLaLe vs Pondros SC 1913 84 SL 781)
have all been upheld as a valld exerclse of Lhe pollce power Agaln workmens
compensaLlon laws have been qulLe generally upheld 1hese sLaLuLes dlscard Lhe
common law Lheory LhaL employers are noL llable for lndusLrlal accldenLs and make
Lhem responslble for all accldenLs resulLlng from Lrade rlsks lL belng consldered
LhaL such accldenLs are a leglLlmaLe charge agalnsL producLlon and LhaL Lhe
employer by conLrolllng Lhe prlces of hls producL may shlfL Lhe burden Lo Lhe
communlLy Laws requlrlng sLaLe banks Lo [oln ln esLabllshlng a deposlLors
guaranLee fund have also been upheld by Lhe lederal Supreme CourL ln noble SLaLe
8ank vs Paskell (219 u S 104) and Assarla SLaLe 8ank vs uolley (219 uS 121)
Cffenslve nolses and smells have been for a long Llme consldered suscepLlble of
suppresslon ln Lhlckly populaLed dlsLrlcLs 8arrlng llvery sLables from such locaLlons
was approved of ln 8elnman vs LlLLle 8ock (uS Sup CL Apr 3 1913 uS Adv
Cpns p 311) And a munlclpal ordlnance was recenLly upheld (eople vs Lrlcsson
263 lll 368) whlch prohlblLed Lhe locaLlon of garages wlLhln Lwo hundred feeL of
any hosplLal church or school or ln any block used excluslvely for resldenLlal
purposes unless Lhe consenL of Lhe ma[orlLy of Lhe properLy owners be obLalned
Such sLaLuLes as Lhese are usually upheld on Lhe Lheory of safeguardlng Lhe publlc
healLh 8uL we apprehend LhaL ln polnL of facL Lhey have llLLle bearlng upon Lhe
healLh of Lhe normal person buL a greaL deal Lo do wlLh hls physlcal comforL and
convenlence and noL a llLLle Lo do wlLh hls peace of mlnd WlLhouL enLerlng lnLo Lhe
realm of psychology we Lhlnk lL qulLe demonsLrable LhaL slghL ls as valuable Lo a
human belng as any of hls oLher senses and LhaL Lhe proper mlnlsLraLlon Lo Lhls
sense conduces as much Lo hls conLenLmenL as Lhe care besLowed upon Lhe senses
of hearlng or smell and probably as much as boLh LogeLher Cb[ecLs may be
offenslve Lo Lhe eye as well as Lo Lhe nose or ear Mans esLheLlc feellngs are
consLanLly belng appealed Lo Lhrough hls sense of slghL Large lnvesLmenLs have
been made ln LheaLers and oLher forms of amusemenL ln palnLlngs and specLacular
dlsplays Lhe success of whlch depends ln greaL parL upon Lhe appeal made Lhrough
Lhe sense of slghL Movlng plcLure shows could noL posslble wlLhouL Lhe sense of
slghL CovernmenLs have spenL mllllons on parks and boulevards and oLher forms of
clvlc beauLy Lhe flrsL alm of whlch ls Lo appeal Lo Lhe sense of slghL Why Lhen
should Lhe CovernmenL noL lnLerpose Lo proLecL from annoyance Lhls mosL valuable
of mans senses as readlly as Lo proLecL hlm from offenslve nolses and smells?
1he adverLlslng lndusLry ls a leglLlmaLe one lL ls aL Lhe same Llme a cause and an
effecL of Lhe greaL lndusLrlal age Lhrough whlch Lhe world ls now passlng Mllllons
are spenL each year ln Lhls manner Lo gulde Lhe consumer Lo Lhe arLlcles whlch he
needs 1he sense of slghL ls Lhe prlmary essenLlal Lo adverLlslng success 8lllboard
adverLlslng as lL ls now conducLed ls a comparaLlvely recenL form of adverLlslng lL
ls conducLed ouL of doors and along Lhe arLerles of Lravel and compels aLLenLlon by
Lhe sLraLeglc locaLlons of Lhe boards whlch obsLrucL Lhe range of vlslon aL polnLs
where Lravelers are mosL llkely Lo dlrecL Lhelr eyes 8eauLlful landscapes are marred
or may noL be seen aL all by Lhe Lraveler because of Lhe gaudy array of posLers
announclng a parLlcular klnd of breakfasL food or underwear Lhe comlng of a
clrcus an lncomparable soap nosLrums or medlclnes for Lhe curlng of all Lhe llls Lo
whlch Lhe flesh ls helr eLc lL ls qulLe naLural for people Lo proLesL agalnsL Lhls
lndlscrlmlnaLe and wholesale use of Lhe landscape by adverLlsers and Lhe lnLruslon
of Lradesmen upon Lhelr hours of lelsure and relaxaLlon from work CuLdoor llfe
musL lose much of lLs charm and pleasure lf Lhls form of adverLlslng ls permlLLed Lo
conLlnue unhampered unLll lL converLs Lhe sLreeLs and hlghways lnLo verlLable
canyons Lhrough whlch Lhe world musL Lravel ln golng Lo work or ln search of
ouLdoor pleasure
1he success of blllboard adverLlslng depends noL so much upon Lhe use of prlvaLe
properLy as lL does upon Lhe use of Lhe channels of Lravel used by Lhe general
publlc Suppose LhaL Lhe owner of prlvaLe properLy who so vlgorously ob[ecLs Lo
Lhe resLrlcLlon of Lhls form of adverLlslng should requlre Lhe adverLlser Lo pasLe hls
posLers upon Lhe blllboards so LhaL Lhey would face Lhe lnLerlor of Lhe properLy
lnsLead of Lhe exLerlor 8lllboard adverLlslng would dle a naLural deaLh lf Lhls were
done and lLs real dependency noL upon Lhe unresLrlcLed use of prlvaLe properLy buL
upon Lhe unresLrlcLed use of Lhe publlc hlghways ls aL once apparenL CsLenslbly
locaLed on prlvaLe properLy Lhe real and sole value of Lhe blllboard ls lLs proxlmlLy
Lo Lhe publlc Lhoroughfares Pence we concelve LhaL Lhe regulaLlon of blllboards
and Lhelr resLrlcLlon ls noL so much a regulaLlon of prlvaLe properLy as lL ls a
regulaLlon of Lhe use of Lhe sLreeLs and oLher publlc Lhoroughfares
We would noL be undersLood as saylng LhaL blllboard adverLlslng ls noL a leglLlmaLe
buslness any more Lhan we would say LhaL a llvery sLable or an auLomoblle garage ls
noL Lven a blllboard ls more slghLly Lhan plles of rubblsh or an open sewer 8uL all
Lhese buslnesses are offenslve Lo Lhe senses under cerLaln condlLlons
lL has been urged agalnsL mlnlsLerlng Lo Lhe sense of slghL LhaL LasLes are so
dlverslfled LhaL Lhere ls no safe sLandard of leglslaLlon ln Lhls dlrecLlon We answer
ln Lhe language of Lhe Supreme CourL ln noble SLaLe 8ank vs Paskell (219 uS
104) and whlch has already been adopLed by several sLaLe courLs (see sopto) LhaL
Lhe prevalllng morallLy or sLrong and preponderaLlng oplnlon demands such
leglslaLlon 1he aglLaLlon agalnsL Lhe unresLralned developmenL of Lhe blllboard
buslness has produced resulLs ln nearly all Lhe counLrles of Lurope (Lncy
8rlLannlca vol 1 pp 237240) Many drasLlc ordlnances and sLaLe laws have been
passed ln Lhe unlLed SLaLes seeklng Lo make Lhe buslness amenable Lo regulaLlon
8uL Lhelr regulaLlon ln Lhe unlLed sLaLes ls hampered by whaL we concelve an
unwarranLed resLrlcLlon upon Lhe scope of Lhe pollce power by Lhe courLs lf Lhe
pollce power may be exerclsed Lo encourage a healLhy soclal and economlc
condlLlon ln Lhe counLry and lf Lhe comforL and convenlence of Lhe people are
lncluded wlLhln Lhose sub[ecLs everyLhlng whlch encroaches upon such LerrlLory ls
233

amenable Lo Lhe pollce power A source of annoyance and lrrlLaLlon Lo Lhe publlc
does noL mlnlsLer Lo Lhe comforL and convenlence of Lhe publlc And we are of Lhe
oplnlon LhaL Lhe prevalllng senLlmenL ls manlfesLly agalnsL Lhe erecLlon of blllboards
whlch are offenslve Lo Lhe slghL
We do noL conslder LhaL we are ln confllcL wlLh Lhe declslon ln Lubank vs 8lchmond
(226 uS 137) where a munlclpal ordlnance esLabllshlng a bulldlng llne Lo whlch
properLy owners musL conform was held unconsLlLuLlonal As we have polnLed ouL
blllboard adverLlslng ls noL so much a use of prlvaLe properLy as lL ls a use of Lhe
publlc Lhoroughfares lL derlves lLs value Lo Lhe power solely because Lhe posLers
are exposed Lo Lhe publlc gaze lL may well be LhaL Lhe sLaLe may noL requlre prlvaLe
properLy owners Lo conform Lo a bulldlng llne buL may prescrlbe Lhe condlLlons
under whlch Lhey shall make use of Lhe ad[olnlng sLreeLs and hlghways nor ls Lhe
law ln quesLlon Lo be held lnvalld as denylng equal proLecLlon of Lhe laws ln keokee
Coke Co vs 1aylor (234 uS 224) lL was sald lL ls more pressed LhaL Lhe acL
dlscrlmlnaLes unconsLlLuLlonally agalnsL cerLaln classes 8uL whlle Lhere are
dlfferences of oplnlon as Lo Lhe degree and klnd of dlscrlmlnaLlon permlLLed by Lhe
lourLeenLh AmendmenL lL ls esLabllshed by repeaLed declslons LhaL a sLaLuLe
almed aL whaL ls deemed an evll and hlLLlng lL presumably where experlence shows
lL Lo be mosL felL ls noL Lo be upseL by Lhlnklng up and enumeraLlng oLher lnsLances
Lo whlch lL mlghL have been applled equally well so far as Lhe courL can see 1haL ls
for Lhe leglslaLure Lo [udge unless Lhe case ls very clear
8uL we have noL overlooked Lhe facL LhaL we are noL ln harmony wlLh Lhe hlghesL
courLs of a number of Lhe sLaLes ln Lhe Amerlcan unlon upon Lhls polnL 1hose
courLs belng of Lhe oplnlon LhaL sLaLuLes whlch are prompLed and lnsplred by
esLheLlc conslderaLlons merely havlng for Lhelr sole purpose Lhe promoLlon and
graLlflcaLlon of Lhe esLheLlc sense and noL Lhe promoLlon or proLecLlon of Lhe
publlc safeLy Lhe publlc peace and good order of socleLy musL be held lnvalld and
conLrary Lo consLlLuLlonal provlslons holdlng lnvlolaLe Lhe rlghLs of prlvaLe properLy
Cr ln oLher words Lhe pollce power cannoL lnLerfere wlLh prlvaLe properLy rlghLs
for purely esLheLlc purposes 1he courLs Laklng Lhls vlew resL Lhelr declslons upon
Lhe proposlLlon LhaL Lhe esLheLlc sense ls dlsassoclaLed enLlrely from any relaLlon Lo
Lhe publlc healLh morals comforL or general welfare and ls Lherefore beyond Lhe
pollce power of Lhe sLaLe 8uL we are of Lhe oplnlon as above lndlcaLed LhaL
unslghLly adverLlsemenLs or slgns slgnboards or blllboards whlch are offenslve Lo
Lhe slghL are noL dlsassoclaLed from Lhe general welfare of Lhe publlc 1hls ls noL
esLabllshlng a new prlnclple buL carrylng a well recognlzed prlnclple Lo furLher
appllcaLlon (lruend on ollce ower p 166)
lor Lhe foregolng reasons Lhe [udgmenL appealed from ls hereby reversed and Lhe
acLlon dlsmlssed upon Lhe merlLs wlLh cosLs So ordered
Atellooo cI 1ottes cotsoo ooJ Atoollo II coocot
uLClSlCn Cn 1PL MC1lCn lC8 A 8LPLA8lnC !AnuA8? 24 1916
1kLN1
Counsel for Lhe plalnLlffs call our aLLenLlon Lo Lhe case of x potte ?oung (209 uS
123) and say LhaL Lhey are of Lhe oplnlon LhaL Lhls case ls Lhe absoluLely
deLermlnaLlve of Lhe quesLlon of [urlsdlcLlon ln ln[uncLlons of Lhls klnd We dld noL
refer Lo Lhls case ln our former oplnlon because we were saLlsfled LhaL Lhe
reasonlng of Lhe case ls noL appllcable Lo secLlon 100 (b) 139 and 140 of AcL no
2339 1he prlnclples announced ln Lhe ?oung case are sLaLed as follows lL may
Lherefore be sald LhaL when Lhe penalLles for dlsobedlence are by flnes so
enormous and lmprlsonmenL so severe as Lo lnLlmldaLe Lhe company and lLs
offlcers from resorLlng Lo Lhe courLs Lo LesL Lhe valldlLy of Lhe leglslaLlon Lhe resulL
ls Lhe same as lf Lhe law ln Lerms prohlblLed Lhe company from seeklng [udlclal
consLrucLlon of laws whlch deeply affecL lLs rlghLs
lL ls urged LhaL Lhere ls no prlnclple upon whlch Lo base Lhe clalm LhaL a person ls
enLlLled Lo dlsobey a sLaLuLe aL leasL once for Lhe purpose of LesLlng lLs valldlLy
wlLhouL sub[ecLlng hlmself Lo Lhe penalLles for dlsobedlence provlded by Lhe sLaLuLe
ln case lL ls valld 1hls ls noL an accuraLe sLaLemenL of Lhe case Crdlnarlly a law
creaLlng offenses ln Lhe naLure of mlsdemeanors or felonles relaLes Lo a sub[ecL
over whlch Lhe [urlsdlcLlon of Lhe leglslaLure ls compleLe ln any evenL ln Lhese case
however of Lhe esLabllshmenL of cerLaln raLes wlLhouL any hearlng Lhe valldlLy of
such raLes necessarlly depends upon wheLher Lhey are hlgh enough Lo permlL aL
leasL some reLurn upon Lhe lnvesLmenL (how much lL ls noL now necessary Lo sLaLe)
and an lnqulry as Lo LhaL facL ls a proper sub[ecL of [udlclal lnvesLlgaLlon lf lL Lurns
ouL LhaL Lhe raLes are Loo low for LhaL purpose Lhen Lhey are lllegal now Lo
lmpose upon a parLy lnLeresLed Lhe burden of obLalnlng a [udlclal declslon of such a
quesLlon (no prlor hearlng havlng ever been glven) only upon Lhe condlLlon LhaL lf
unsuccessful he musL suffer lmprlsonmenL and pay flnes as provlded ln Lhese acLs
ls ln effecL Lo close up all approaches Lo Lhe courLs and Lhus prevenL any hearlng
upon Lhe quesLlon wheLher Lhe raLes as provlded by Lhe acLs are noL Loo low and
Lherefore lnvalld 1he dlsLlncLlon ls obvlous beLween a case where Lhe valldlLy of
Lhe acLs depends upon Lhe exlsLence of a facL whlch can be deLermlned only afLer
lnvesLlgaLlon of a very compllcaLed and Lechnlcal characLer and Lhe ordlnary case
of a sLaLuLe upon a sub[ecL requlrlng no such lnvesLlgaLlon and over whlch Lhe
[urlsdlcLlon of Lhe leglslaLure ls compleLe ln any evenL
An examlnaLlon of Lhe secLlons of our lnLernal 8evenue Law and of Lhe
clrcumsLances under whlch and Lhe purposes for whlch Lhey were enacLed wlll
show LhaL unllke Lhe sLaLuLes under conslderaLlon ln Lhe above clLed case Lhelr
enacLmenL lnvolved no aLLempL on Lhe parL of Lhe LeglslaLure Lo prevenL
dlssaLlsfled Laxpayers from resorLlng Lo Lhe courLs Lo LesL Lhe valldlLy of Lhe
leglslaLlon no efforL Lo prevenL any lnqulry as Lo Lhelr valldlLy Whlle secLlon 139
does prevenL Lhe LesLlng of Lhe valldlLy of subsecLlon (b) of secLlon 100 ln ln[uncLlon
sulLs lnsLlLuLed for Lhe purpose of resLralnlng Lhe collecLlon of lnLernal revenue
Laxes secLlon 140 provldes a compleLe remedy for LhaL purpose And furLhermore
Lhe valldlLy of subsecLlon (b) does noL depend upon Lhe exlsLence of a facL whlch
236

can be deLermlned only afLer lnvesLlgaLlon of a very compllcaLed and Lechnlcal
characLer buL Lhe [urlsdlcLlon of Lhe LeglslaLure over Lhe sub[ecL wlLh whlch Lhe
subsecLlon deals ls compleLe ln any evenL 1he [udgmenL of Lhe courL ln Lhe ?oung
case resLs upon Lhe proposlLlon LhaL Lhe aggrleved parLles had no adequaLe remedy
aL law
nelLher dld we overlook Lhe case of Ceneral Cll Co vs Craln (209 uS 211)
declded Lhe same day and clLlng x potte ?oung sopto ln LhaL case Lhe plalnLlff was
a 1ennessee corporaLlon wlLh lLs prlnclpal place of buslness ln Memphls
1ennessee lL was engaged ln Lhe manufacLure and sale of coal oll eLc lLs wells and
planL were locaLed ln ennsylvanla and Chlo Memphls was noL only lLs place of
buslness aL whlch place lL sold oll Lo Lhe resldenLs of 1ennessee buL also a
dlsLrlbuLlng polnL Lo whlch olls were shlpped from ennsylvanla and Chlo and
unloaded lnLo varlous Lanks for Lhe purpose of belng forwarded Lo Lhe Arkansas
Loulslana and Mlsslsslppl cusLomers noLwlLhsLandlng Lhe facL LhaL Lhe company
separaLed lLs olls whlch were deslgnaLed Lo meeL Lhe requlremenLs of Lhe orders
from Lhose SLaLes from Lhe olls for sale ln 1ennessee Lhe defendanL lnslsLed LhaL
he had a rlghL under Lhe AcL of Lhe 1ennessee LeglslaLure approved Aprll 21 1899
Lo lnspecL all Lhe olls unlocaLed ln Memphls wheLher for sale ln LhaL SLaLe or noL
and charge and collecL for such lnspecLlon a regular fee of LwenLyflve cenLs per
barrel 1he company belng advlsed LhaL Lhe defendanL had no such rlghL lnsLlLuLed
Lhls acLlon ln Lhe lnferlor SLaLes courL for Lhe purpose of en[olnlng Lhe defendanL
upon Lhe grounds sLaLed ln Lhe blll from lnspecLlng or aLLempLlng Lo lnspecL lLs olls
upon Lrlal Lhe prellmlnary ln[uncLlon whlch had been granLed aL Lhe
commencemenL of Lhe acLlon was conLlnued ln force upon appeal Lhe supreme
courL of Lhe SLaLe of 1ennessee declded LhaL Lhe sulL was one agalnsL Lhe SLaLe and
reversed Lhe [udgmenL of Lhe Chancellor ln Lhe Supreme CourL of Lhe unlLed
SLaLes where Lhe case was revlewed upon a wrlL of error Lhe conLenLlons of Lhe
parLles were sLaLed by Lhe courL as follows lL ls conLended by defendanL ln error
LhaL Lhls courL ls wlLhouL [urlsdlcLlon because no maLLer soughL Lo be llLlgaLed by
plalnLlff ln error was deLermlned by Lhe Supreme CourL of 1ennessee 1he courL
slmply held lL ls pald LhaL under Lhe laws of Lhe SLaLe lL had no [urlsdlcLlon Lo
enLerLaln Lhe sulL for any purpose And lL ls lnslsLed haL Lhls holdlng lnvolved no
lederal quesLlon buL only Lhe powers and [urlsdlcLlon of Lhe courLs of Lhe SLaLe of
1ennessee ln respecL Lo whlch Lhe Supreme CourL of 1ennessee ls Lhe flnal arblLer
Cpposlng Lhese conLenLlons plalnLlff ln error urges LhaL wheLher a sulL ls one
agalnsL a SLaLe cannoL depend upon Lhe declaraLlon of a sLaLuLe buL depends upon
Lhe essenLlal naLure ofLhe sulL and LhaL Lhe Supreme CourL recognlzed LhaL Lhe
sLaLuLe aded noLhlng Lo Lhe axlomaLlc prlnclple LhaL Lhe SLaLe as a soverelgn ls
noL sub[ecL Lo sulL save by lLs own consenLAnd lL ls hence lnslsLed LhaL Lhe courL
by dlsmlsslng Lhe blll gave effecL Lo Lhe law whlch was aLLacked lL ls furLher lnslsLed
LhaL Lhe blll undoubLedly presenL rlghLs under Lhe ConsLlLuLlon of Lhe unlLed SLaLes
and condlLlons whlch enLlLle plalnLlff ln error Lo an ln[uncLlon for Lhe proLecLlon of
such rlghLs and LhaL a sLaLuLe of Lhe SLaLe whlch operaLes Lo deny such rlghLs or
such rellef `ls lLself ln confllcL wlLh Lhe ConsLlLuLlon of Lhe unlLed SLaLes
1haL sLaLuLe of 1ennessee whlch Lhe supreme courL of LhaL SLaLe consLrued and
held Lo be prohlblLory of Lhe sulL was an acL passed lebruary 28 1873 whlch
provldes 1haL no courL ln Lhe SLaLe of 1ennessee has nor shall hereafLer have any
power [urlsdlcLlon or auLhorlLy Lo enLerLaln any sulL agalnsL Lhe SLaLe or any
offlcer acLlng by Lhe auLhorlLy of Lhe SLaLe wlLh a vlew Lo reach Lhe SLaLe lLs
Lreasury funds or properLy and all such sulLs now pendlng or hereafLer broughL
shall be dlsmlssed as Lo Lhe SLaLe or such offlcer on moLlon plea or demurrer of
Lhe law offlcer of Lhe SLaLe or counsel employed by Lhe SLaLe
1he Supreme CourL of Lhe unlLed SLaLes afLer revlewlng many cases sald
necessarlly Lo glve adequaLe proLecLlon Lo consLlLuLlonal rlghLs a dlsLlncLlon musL
be made beLween valld and lnvalld sLaLe laws as deLermlnlng Lhe characLer of Lhe
sulL agalnsL sLaLe offlcers And Lhe sulL aL bar lllusLraLes Lhe necesslLy lf a sulL
agalnsL sLaLe offlcer ls precluded ln Lhe naLlonal courLs by Lhe LlevenLh AmendmenL
Lo Lhe ConsLlLuLlon and may be forbldden by a SLaLe Lo lLs courLs as lL ls conLended
ln Lhe case aL bar LhaL lL may be wlLhouL power of revlew by Lhls courL lL musL be
evldenL LhaL an easy way ls open Lo prevenL Lhe enforcemenL of many provlslons of
Lhe ConsLlLuLlon and Lhe lourLeenLh AmendmenL whlch ls dlrecLed aL sLaLe acLlon
could be nulllfled as Lo much of lLs operaLlon lL belng Lhen Lhe rlghL of a parLy Lo
be proLecLed agalnsL a law whlch vlolaLes a consLlLuLlonal rlghL wheLher by lLs
Lerms or Lhe manner of lLs enforcemenL lL ls manlfesL LhaL a declslon whlch denles
such proLecLlon glves effecL Lo Lhe law and Lhe declslon ls revlewable by Lhls
courL
1he courL Lhen proceeded Lo conslder wheLher Lhe law of 1899 would lf
admlnlsLered agalnsL Lhe olls ln quesLlon vlolaLe any consLlLuLlonal rlghL of Lhe
plalnLlff and afLer flndlng and ad[udglng LhaL Lhe olls were noL ln movemenL
Lhrough Lhe SLaLes LhaL Lhey had reached Lhe desLlnaLlon of Lhelr flrsL shlpmenL
and were held Lhere noL ln necessary delay aL means of LransporLaLlon buL for Lhe
buslness purposes and proflL of Lhe company and resLlng lLs [udgmenL upon Lhe
Laxlng power of Lhe SLaLe afflrmed Lhe decree of Lhe supreme courL of Lhe SLaLe of
1ennessee
lrom Lhe foregolng lL wlll be seen LhaL Lhe Supreme CourL of 1ennessee dlsmlssed
Lhe case for wanL of [urlsdlcLlon because Lhe sulL was one agalnsL Lhe SLaLe whlch
was prohlblLed by Lhe 1ennessee LeglslaLure 1he Supreme CourL of Lhe unlLed
SLaLes Look [urlsdlcLlon of Lhe conLroversy for Lhe reasons above quoLed and
susLalned Lhe AcL of 1899 as a revenue law
1he case of 1ennessee vs Sneed (96 uS 69) and ShelLon vs laLL (139 uS 391)
relled upon ln our former oplnlon were noL clLed ln Ceneral Cll Co vs Craln sopto
because Lhe quesLlons presenLed and Lhe sLaLuLes under conslderaLlon were
enLlrely dlfferenL 1he AcL approved March 31 1873 expressly prohlblLs Lhe courLs
from resLralnlng Lhe collecLlon of any Lax leavlng Lhe dlssaLlsfled Laxpayer Lo hls
237

excluslve remedy paymenL under proLesL and sulL Lo recover whlle Lhe AcL
approved lebruary 28 1873 prohlblLs sulLs agalnsL Lhe SLaLe
ln upholdlng Lhe sLaLuLe whlch auLhorlzes Lhe removal of slgnboards or blllboards
upon Lhe sole ground LhaL Lhey are offenslve Lo Lhe slghL we recognlzed Lhe facL
LhaL we are noL ln harmony wlLh varlous sLaLe courLs ln Lhe Amerlcan unlon We
have [usL examlned Lhe declslon of Lhe Supreme CourL of Lhe SLaLe of llllnols ln Lhe
recenL case (CcLober uecember 1914) of 1homas Cusack Co vs ClLy of Chlcago
(267 lll 344) whereln Lhe courL upheld Lhe valldlLy of a munlclpal ordlnances
whlch reads as follows 707 ltootoqe cooseots tepolteJ lL shall be unlawful for
any person flrm or corporaLlon Lo erecL or consLrucL any blllboard or slgnboard ln
any block on any publlc sLreeL ln whlch onehalf of Lhe bulldlngs on boLh sldes of
Lhe sLreeL are used excluslvely for resldence purposes wlLhouL flrsL obLalnlng Lhe
consenL ln wrlLlng of Lhe owners or duly auLhorlzed agenLs of sald owners ownlng
a ma[orlLy of Lhe fronLage of Lhe properLy on boLh sldes of Lhe sLreeL ln Lhe block
ln whlch such blllboard or slgnboard ls Lo be erecLed consLrucLed or locaLed Such
wrlLLen consenL shall be flled wlLh Lhe commlssloner of bulldlngs before a permlL
shall be lssued for Lhe erecLlon consLrucLlon or locaLlon of such blllboard or slgn
board
1he evldence whlch Lhe llllnols courL relled upon was Lhe danger of flres Lhe facL
LhaL blllboards promoLe Lhe commlsslon of varlous lmmoral and fllLhy acLs by
dlsorderly persons and Lhe lnadequaLe pollce proLecLlon furnlshed Lo resldenLlal
dlsLrlcLs 1he lasL ob[ecLlon has no vlrLue unless one or Lhe oLher of Lhe oLher
ob[ecLlons are valld lf Lhe blllboard lndusLry does ln facL promoLe such munlclpal
evlls Lo noLlceable exLenL lL seems a curlous lnconslsLency LhaL a ma[orlLy of Lhe
properLy owners on a glven block may legallze Lhe buslness Powever Lhe declslon
ls undoubLedly a conslderable advance over Lhe vlews Laken by oLher hlgh courLs ln
Lhe unlLed SLaLes and dlsLlngulshes several llllnols declslons lL ls an advance
because lL permlLs Lhe suppresslon of blllboards where Lhey are undeslrable 1he
ordlnance whlch Lhe courL approved wlll no doubL cause Lhe vlrLual suppresslon of
Lhe buslness ln Lhe resldenLlal dlsLrlcLs Pence lL ls recognlzed LhaL under cerLaln
clrcumsLances blllboards may be suppressed as an unlawful use of prlvaLe properLy
Loglcally lL would seem LhaL Lhe premlse of facL relled upon ls noL very solld
Cb[ecLlons Lo Lhe blllboard upon pollce sanlLary and moral grounds have been as
polnLed ouL by counsel for Churchlll and 1alL duly consldered by numerous hlgh
courLs ln Lhe unlLed SLaLes and wlLh one excepLlon have been re[ecLed as wlLhouL
foundaLlon 1he excepLlon ls Lhe Supreme CourL of Mlssourl whlch advances
pracLlcally Lhe same llne of reasonlng as has Lhe llllnols courL ln Lhls recenL case (SL
Louls Cunnlng AdvL Co vs ClLy of SL Louls 137 S W 929) ln facL Lhe llllnols
courL ln Paller Slgn Works vs hyslcal CulLure 1ralnlng School (249 lll 436)
dlsLlngulshed ln Lhe recenL case sald 1here ls noLhlng lnherenLly dangerous Lo
Lhe healLh or safeLy of Lhe publlc ln sLrucLures LhaL are properly erecLed for
adverLlslng purposes
lf a blllboard ls so consLrucLed as Lo offer no room for ob[ecLlons on sanlLary or
moral grounds lL would seem LhaL Lhe ordlnance above quoLed would have Lo be
susLalned upon Lhe very grounds whlch we have advanced ln susLalnlng our own
sLaLuLe
lL mlghL be well Lo noLe LhaL blllboard leglslaLlon ln Lhe unlLed SLaLes ls aLLempLlng
Lo eradlcaLe a buslness whlch has already been flrmly esLabllshed 1hls buslness was
allowed Lo expand unchecked unLll lLs very exLenL called aLLenLlon Lo lLs
ob[ecLlonable feaLures ln Lhe hlllpplne lslands such leglslaLlon has almosL
anLlclpaLed Lhe buslness whlch ls noL yeL of such proporLlons LhaL lL can be sald Lo
be falrly esLabllshed lL may be LhaL Lhe courLs ln Lhe unlLed SLaLes have commlLLed
Lhemselves Lo a course of declslons wlLh respecL Lo blllboard adverLlslng Lhe full
consequences of whlch were noL percelved for Lhe reason LhaL Lhe developmenL of
Lhe buslness has been so recenL LhaL Lhe ob[ecLlonable feaLures of lL dld noL presenL
Lhemselves clearly Lo Lhe courLs nor Lo Lhe people We ln Lhls counLry have Lhe
beneflL of Lhe experlence of Lhe people of Lhe unlLed SLaLes and may make our
leglslaLlon prevenLlve raLher Lhan correcLlve 1here are ln Lhls counLry moreover
on every hand ln Lhose dlsLrlcLs where Spanlsh clvlllzaLlon has held sway for so
many cenLurles examples of archlLecLure now belonglng Lo a pasL age and whlch
are aLLracLlve noL only Lo Lhe resldenLs of Lhe counLry buL Lo vlslLors lf Lhe blllboard
lndusLry ls permlLLed wlLhouL consLralnL or conLrol Lo hlde Lhese hlsLorlc slLes from
Lhe passerby Lhe counLry wlll be less aLLracLlve Lo Lhe LourlsL and Lhe people wlll
suffer a dlsLrlcL economlc loss
1he moLlon for a rehearlng ls Lherefore denled
Atellooo cI 1ottes ooJ cotsoo II coocot

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